Appendix I_National Park Service Active Transportation Guidebook.pdf

National Park Service U.S. Department of Interior

National Park Service Active Transportation Guidebook

July 2023 (2nd Edition)

A Resource on Supporting Walking and Bicycling for National Parks and their Partners ii

Cover

Cover images are sourced as follows:

• Top, Left Photo: Shenandoah National Park, Virginia (Source: NPS)

• Bottom, Left Photo: Grand Canyon National Park, Arizona (Source: NPS)

• Top, Right Photo: Golden Gate National Recreation Area, California (Source: NPS)

• Bottom, Right Photo: Grand Teton National Park, Wyoming (Source: Matt Wild)

NPS Active Transportation Guidebook iii

Notice

This document is disseminated under the sponsorship of the National Park Service in the interest of information exchange. The U.S. Government assumes no liability for the use of information contained in this document.

The U.S. Government does not endorse products or manufacturers. Trademarks or manufacturers’ names appear in this report only because they are considered essential to the objective of this document.

The contents of this report reflect the views of the authors, who are responsible for the facts and accuracy of the data presented herein. The contents do not necessarily reflect the official policy of the National Park Service or other federal agencies involved in the development of this report. This report does not constitute a standard, specification, or regulation.

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Foreword

United States Department of the Interior

1849 C Street, N.W.

Washington, DC 20240

Active transportation, including cycling, walking and other forms of human-powered transportation, is an important way that visitors experience the wonder and breadth of our nation’s over 84 million acres of parks, cultural and historical spaces. Whether as a form of access to parks or recreation at a site, active transportation offers diverse opportunities for recreation, greater accessibility, economic growth, improved quality of life, and health and wellness benefits, which are all cornerstones to building a strong and vibrant community.

As popularity of the national park system continues to rise, new and emerging challenges, such as increased visitation and congestion, user conflicts, climate impacts, and the need for more equitable access and engagement, have left national parks and nearby communities eager for tools and strategies to balance visitor safety and experience with the preservation and management of natural and cultural resources.

Active transportation not only offers a unique way for a visitor to experience the outdoors, it can also help to alleviate vehicle congestion in parks, promote the protection of park resources, encourage environmentally sustainable travel options, promote healthy outdoor recreation, provide more equitable access, and encourage new ways to enhance the visitor experience.

To support parks in promoting active transportation to and within their sites, the National Park Service, in partnership with the U.S. Department of Transportation, published the National Park Service Active Transportation Guidebook: A Resource on Supporting Walking and Bicycling for National Parks and their Partners in 2018. This first-of-its-kind tool supports National Park Service staff, local governments, community partners, and others in promoting, encouraging, and implementing responsible bicycle and pedestrian-friendly travel to and within national park sites. This updated edition includes the latest active transportation information and guidance from both agencies.

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In addition to outlining opportunities for parks to implement bike sharing systems, coordinate with local communities to develop multiuse trails and other bicycle and pedestrian infrastructure, host car-free events, and conduct bicycle safety trainings, this updated guidebook incorporates new and additional considerations for advancing equity and inclusion in the parks, electric bicycle use, active transportation safety, and emerging mobility technologies to enhance walking and biking. These additions align with the National Park Service National Long Range Transportation Plan, as well as strengthen the mutually beneficial relationship between the Department of the Interior and U.S.

Department of Transportation as outlined in the U.S. Department of Transportation/ Department of the Interior Memorandum of Understanding on Transportation Innovation in the National Park System.

As with the first version, this updated guidebook was developed with expert review and guidance from partners across a variety of disciplines, programs, agencies, and organizations, including involvement by many who share a common desire to create a more bicycle- and pedestrian-friendly national park system.

We hope this updated guidebook continues to inform, inspire, and foster creativity for National Park Service staff, communities, and partners as they work together to improve bicycle and pedestrian access between national parks, surrounding communities, and beyond.

Mike Caldwell Associate Director of Park Planning, Facilities and Lands National Park Service

Lauren Imgrund Associate Director of Partnerships and Civic Engagement vi

Foreword

United States Department of Transportation

Federal Highway Administration

1200 New Jersey Avenue SE Washington, DC 20590

The Federal Highway Administration (FHWA) is pleased to partner with the National Park Service (NPS) to present this update of the National Park Service Active Transportation Guidebook: A Resource on Supporting Walking and Bicycling for National Parks and their Partners. Working with the NPS to develop this Guidebook is another example of FHWA Office of Federal Lands Highway’s long-standing commitment to supporting the NPS in meeting their context-sensitive transportation goals to: “preserve and protect resources, while providing safe and enjoyable access to and within the national parks, using sustainable, appropriate, and integrated transportation solutions.”

This Guidebook supports efforts by both the Department of the Interior (DOI) and U.S.

Department of Transportation (DOT) to build world-class transportation systems that provide enhanced access for car-free trips, interpretation, education, and enjoyment opportunities to visitors who want to experience public lands, as reflected in the DOT/DOI Memorandum of Understanding on Transportation Innovation in the National Park System.

DOT has a long history of supporting pedestrian and bicycle transportation. Active transportation supports the Department’s 2022-2026 Strategic Plan goals to make our transportation system safer for all people, reduce inequities and transportation-related disparities, and reduce greenhouse gas emissions and pollution, among other priorities.

Success in improving pedestrian safety and mobility for people of all ages and abilities in our national parks depends on partnerships such as this one with the NPS.

The National Park Service Active Transportation Guidebook serves as a resource for national park units and their partners to both identify and prioritize bicycle and pedestrian transportation needs, in addition to helping gain an understanding of Complete Streets design considerations and resource opportunities to implement projects that meet these https://www.nps.gov/orgs/1548/upload/2021-mou-between-doi-and-dot-re-transportation-in-parks.pdf vii needs. Similarly, the Guidebook shares information and examples of how national parks and their communities can develop and provide active transportation programs to further promote opportunities for visitors to bike and walk to and within parks. While focused on the NPS, the information in this Guidebook will be beneficial to all Federal Land Management Agencies looking to support nonmotorized transportation to and within federal lands.

First published in 2018, this resource has now been updated to include the latest active transportation information, examples, and guidance. As with the initial version, this updated Guidebook was developed by drawing on guidance and expertise from numerous disciplines within the NPS and DOT. It serves as an example of both agencies collaborating to develop resources that will educate and expand the capabilities of federal staff to develop bicycling and walking options to and within some of the most iconic places of natural wonder and cultural heritage the nation has to offer.

Timothy G. Hess, P.E.

Associate Administrator for Office of Federal Lands Highway viii

Acknowledgements

The National Park Service (NPS) developed this Guidebook with support from the U.S. Department of Transportation John A. Volpe National Transportation Systems Center (Volpe Center), and the U.S.

Department of Transportation Federal Highway Administration (FHWA). The following individuals were instrumental in this effort:

• Krista Sherwood, National Park Service, Conservation & Outdoor Recreation Programs

• Jessica Baas, U.S. DOT Volpe Center

• Amy Plovnick, U.S. DOT Volpe Center

• Alexandra McNally, U.S. DOT Volpe Center

• David Daddio, U.S. DOT Volpe Center

• Amalia Holub, U.S. DOT Volpe Center

• Laurie Miskimins, Central Federal Lands Highway Division

The NPS convened a Technical Advisory Committee (TAC) to support the development of the Guidebook.

TAC members helped to develop content, review drafts, provide ideas and varying perspectives, and subject matter expertise. Their contributions and dedication to the effort were critical to the completion of the Guidebook. Members included:

• Tegan Boehmer, Centers for Disease Control and Prevention

• Nola Chavez, National Park Service, Denver Service Center

• Linda Ginenthal, City of Portland, Oregon Active Transportation and Safety Division

• Morgan Lommele, People for Bikes

• Saara Snow, Adventure Cycling Association

Development of this Guidebook was a collaborative effort, gathering input from multiple agencies, organizations, and disciplines. The authors would like to acknowledge the following individuals for their contributions of time and subject matter expertise to this Guidebook:

National Park Service

• Craig Ackerman, Crater Lake National Park

• Nick Bartolomeo, Rock Creek Park

• Randy Biddle, Rocky Mountain National Park

• Jeremy Buzzell, Park Facility Management Division

• Michael Byrd, Colonial National Historical Park

• Jay Calhoun, Division of Regulations, Jurisdiction, and Special Park Uses

• Jennifer Evans, Crater Lake National Park

• Ina Hysi, Public Risk Management Program

• John Kelly, Acadia National Park

• Randy King, Mount Rainier National Park

• Steve Kloster, Great Smoky Mountain National Park

• Molly McKinley, Denali National Park

• Deb Nordeen, Office of Policy

• Jennifer Proctor, Public Risk Management Program ix

• Alma Ripps, Office of Policy

• Estee Rivera, NPS Centennial Office

• Brian Sikes, Shenandoah National Park

• Elizabeth Stern, NPS Centennial Office

• Tammy Stidham, National Capital Region

• Virginia Sullivan, Adventure Cycling Association

• Alan Turnbull, Rivers, Trails & Conservation Assistance Program

• Eliza Voigt, National Mall and Memorial Parks

• Phil Wilson, Glacier National Park

Federal Highway Administration

• Scott Allen

• David Cohen

• Christopher B. Douwes

• Dan Goodman

• Gary Jensen

• Todd Johnson

• Anthony M. Jones

• Dave Kirschner

• Susan Law

• Tamara Redmon

• Gabe Rousseau

• Shari Schaftlein

Additional Stakeholders

• Dee Merriam, Centers for Disease Control and Prevention

• Marissa Rodriguez-McGill, ofo

• Andy Williamson, International Mountain Bicycling Association

Additional Volpe Center Support

• Caitlin Connelly

• Rachel Galton

• Emily Navarrete

• Miranda Richard

• Amber Shackelford

• Erica Simmons

• Jaime Young x

2023 Update

In 2023 the NPS updated the Guidebook with support from the Volpe Center and the FHWA. The following individuals were instrumental in this update:

• Krista Sherwood, NPS Conservation & Outdoor Recreation Division

• Wayne Emington, NPS Park Facility Management Division

• Stephanie Tepperberg, NPS Conservation & Outdoor Recreation Division

• Annisha Borah, U.S. DOT Volpe Center

• Alexandra McNally, U.S. DOT Volpe Center

• Amy Plovnick, U.S. DOT Volpe Center

The authors would like to acknowledge the following individuals for their contributions of time and subject matter expertise to the 2023 Guidebook update:

National Park Service

• Jeremy Buzzell, Park Facility Management Division

• Erica Cole, Park Facility Management Division

• Don Gutkowski, Park Facility Management Division

• Lindsay Gillham, Natural Resources Stewardship & Science Directorate

• Mark Hartsoe, Park Facility Management Division

• Ina Hysi, Public Risk Management Program

• Adam Kelsey, Law Enforcement, Security, and Emergency Services

• Mike Madej, Intermountain Region,

• Joe Regula, Park Planning and Special Studies Division

• Victor Rydlisky, Denver Service Center

• Steve Suder, Park Facility Management Division

Federal Highway Administration

• Christine Black, Office of Federal Lands Highway

• Katie Carlos, Office of Federal Lands Highway

• Becky Crowe, Office of Safety

• Christopher Douwes, Office of Human Environment

• Peter Eun, Resource Center Safety and Design Team

• Elizabeth Hilton, Office of Infrastructure

• Matt Hinshaw, Office of Federal Lands Highway

• Laura Mero, Turner-Fairbank Highway Research Center

• Chimai Ngo, Office of Safety

• Isbel Ramos-Reyes, Office of Federal Lands Highway

• Tamara Redmon, Office of Safety

• Matthew Zeller, Office of Operations

• Abdul Zineddin, Office of Safety xi

Centers for Disease Control and Prevention

• David Brown, Physical Activity and Health Branch

• Kristine Day, Physical Activity and Health Branch

Additional U.S. DOT Volpe Center Support

• Renee Blackburn

• Walker Harrison

• Kimberly Higgins

• Jacob Korn

• Rahi Patel

• Amber Shackelford

• Alex Wilkerson xii

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1. AGENCY USE ONLY (Leave blank) 2. REPORT DATE July 2023

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4. TITLE AND SUBTITLE

National Park Service Active Transportation Guidebook

5a. FUNDING NUMBERS

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6. AUTHOR(S)

2023: Annisha Borah, Alexandra McNally, Amy Plovnick (Volpe Center), Krista Sherwood, Wayne Emington, Stephanie Tepperberg (National Park Service)

2018: Jessica Baas, David Daddio, Amalia Holub, Alexandra McNally, Amy Plovnick (Volpe Center) Krista Sherwood (National Park Service) Laurie Miskimins (Central Federal Lands Highway Division)

5b. CONTRACT NUMBER

7. PERFORMING ORGANIZATION NAME(S) AND ADDRESS(ES)

U.S. Department of Transportation John A. Volpe National Transportation Systems Center Transportation Planning Division 55 Broadway Cambridge, MA 02142-1093

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REPORT

DOT-VNTSC-NPS-17-02

9. SPONSORING/MONITORING AGENCY NAME(S) AND ADDRESS(ES)

Krista Sherwood National Park Service 1849 C Street NW Washington, DC 20005

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999/136171

11. SUPPLEMENTARY NOTES

12a. DISTRIBUTION/AVAILABILITY STATEMENT Public distribution/availability

12b. DISTRIBUTION CODE

13. ABSTRACT

The NPS Active Transportation Guidebook is intended to serve as a resource to parks and their partners, and inspire them to pursue enhancements to active transportation to and within parks. This Guidebook contains 10 chapters that cover policy, infrastructure design, and programs that parks and partners can pursue to improve walking and bicycling opportunities for visitors and surrounding communities.

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ABSTRACT

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Acronyms

Acronym Full Name

AASHTO American Association of State Highway and Transportation Officials

ABA Architectural Barriers Act

ADA Americans with Disabilities Act

ART Anacostia Riverwalk Trail

BAB Bright Angel Bicycles

CDC Centers for Disease Control and Prevention

CDOT Colorado Department of Transportation

CE Categorical Exclusion

CFR Code of Federal Regulations

CSS Context Sensitive Solutions

CUA Commercial Use Authorization

CVTS Collaborative Visitor Transportation Survey

DDOT District of Columbia Department of Transportation

DNR Department of Natural Resources

DOI Department of Interior

DOT Department of Transportation

DSC Denver Service Center

EA Environmental Assessment e-bike Electric bicycle

EIS Environmental Impact Statement e-MTB Electric mountain bike

EPA Environmental Protection Agency e-scooter Electric scooter

Fat bike Fat-tire bicycle

FedRAMP Federal Risk and Authorization Management Program

FHWA Federal Highway Administration

FLH Federal Lands Highway

FLMA Federal Land Management Agency

FLTP Federal Lands Transportation Program

FLAP Federal Lands Access Program

FMSS Facility Management Software System

FTA Federal Transit Administration

FWS U.S. Fish and Wildlife Service

GIS Geographic Information Systems

Acronym Full Name

GMP General Management Plan

GPP Green Parks Plan

GTSR Going-to-the-Sun Road

IMARS Incident Management, Analysis, and Reporting System

LRTP Long Range Transportation Plan

MAP-21 Moving Ahead for Progress in the 21st Century Act

MOA Memorandum of Agreement

MOU Memorandum of Understanding

MPO Metropolitan Planning Organization

MUTCD Manual on Uniform Traffic Control Devices

NACTO National Association of City Transportation Officials

NCHRP National Cooperative Highway Research Program

NEPA National Environmental Policy Act

NHTSA National Highway Traffic Safety Administration

NLRTP National Long Range Transportation Plan

NPS National Park Service

NRSS National Roadway Safety Strategy

NSC National Safety Council

NTSB National Transportation Safety Board

OPDMD Other power-driven mobility device

PBIC Pedestrian and Bicycle Information Center

RSA Road Safety Audit

RTCA Rivers Trails and Conservation Assistance Program

SETP Self Evaluation Transition Plan

STEP Safe Transportation for Every Pedestrian

SUP Special Use Permit

TIP Transportation Improvement Program

TRB Transportation Research Board

USBR U.S. Bicycle Route System

UPS United Parcel Service

U.S.C. United States Code

U.S. DOT United States Department of Transportation

Volpe Center U.S. DOT Volpe National Transportation Systems Center xiv

Executive Summary This Guidebook is intended to assist and inspire parks and their partners to identify and pursue opportunities that enhance active transportation to and within national parks. It introduces a variety of policies, programs, and types of infrastructure that support and promote the use of active transportation within and around national parks. The resources referenced throughout this Guidebook may help those who want to learn more, do more, and implement programs and projects that support walking and bicycling. The Guidebook highlights many park-related examples and best practices in addition to innovative examples from other contexts, with the goal of presenting ideas for improving bicycling and walking opportunities for national parks and their surrounding communities.

The Guidebook covers a number of topics and strategies to support walking and biking to and within national parks and surrounding communities, including:

• Providing context and background information on policies and planning activities related to active transportation, at both local and national levels.

• Planning and deploying active transportation infrastructure, such as pedestrian pathways, multiuse trails, bike lanes, signs/wayfinding, pavement markings, and bicycle racks.

• Evaluating and improving safety for active transportation modes through strategies such as infrastructure improvements, safety education, enforcement, and emergency response.

• Offering activities and programs that provide park visitors the opportunity to bicycle or walk while learning about or experiencing the park in new ways.

• Holding open streets or “car-free” events that enable visitors to enjoy walking and bicycling on park roads without automobile traffic.

• Implementing bikeshare or bicycle rental systems in coordination with nearby communities or other partners.

• Encouraging employees to incorporate active transportation into their workplace routines through offering employee bicycle fleets, active transportation incentives, and employee wellness programs.

• Becoming aware of and planning for innovative trends and technologies related to bicycling and walking, such as bicycle and pedestrian count data, mobile applications and crowdsourced data, electric bicycles and fat tire bicycles, ridehailing, micromobility, and the implications of automated vehicles on pedestrian and bicycle safety and infrastructure.

These types of efforts to enhance active transportation can benefit parks and surrounding communities in many ways. Many parks are experiencing an increase in visitation combined with aging infrastructure and roads that struggle to handle additional cars.

Active transportation can help parks accommodate growing visitation while also offering a unique experience for the visitor. It can also help reduce vehicle congestion and mitigate some of the negative impacts to resources that vehicles cause, such as air, light, and noise pollution and wildlife-vehicle collisions. Investments in infrastructure and programs for walking and bicycling can also provide visitors with more options for getting to and around parks, improve visitor access, and provide visitors and staff opportunities for increased physical activity, improved health and wellness, and unique experiences in natural settings.

Partnership efforts between parks, surrounding communities, and other partners aimed at improving active transportation help to facilitate better connections for walking and bicycling between and within the park and community, as well as form lasting working relationships between park staff and local governments or other local organizations.

Active transportation improvements and related opportunities can also support local economies in gateway communities by attracting visitors and supporting local businesses such as bicycle shops, sports stores, and restaurants.

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Figure ES-1: An Everglades National Park Bike Patrol volunteer on the Shark Valley Scenic Loop in Florida. (Source: NPS)

In addition to describing policies, programs, and infrastructure that parks can implement to promote active transportation, the Guidebook also provides practical information on recommended steps to help parks, partners, and surrounding communities to begin their active transportation efforts. These steps are:

Consider how active transportation can help support park goals.

Review the park’s Foundation Document and other planning documents to determine if expanding active transportation could help the park meet its mission or address identified transportation challenges. Developing an understanding of how active transportation helps to meet park goals can build internal support and justify investments in active transportation.

Inventory existing conditions and needs.

Evaluate the existing infrastructure, programs, or policies within and surrounding the park that support or could be improved to enhance active transportation. Working with residents and stakeholders, particularly those who walk and bicycle in the park, determine whether there are certain locations that are particularly unsafe for walking and bicycling, and whether or not a visitor could enter the park from a nearby community safely on foot or by bicycle.

In addition to identifying problem spots, look at what is working well, and how that could be expanded.

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Develop proposals.

Based on the existing conditions analysis and stakeholder input, develop project ideas for how active transportation in and around the park could be improved or enhanced. This may be through developing new infrastructure, but it could also be through educational programs or organized tours, changes in policies (such as a lower entrance fee for visitors arriving by bicycle rather than by car), initiating a bicycle rental or bikeshare program, or one or more of the numerous other strategies highlighted within this Guidebook.

Consider incorporating active transportation into ongoing transportation initiatives.

Often, active transportation improvements can be incorporated into existing transportation projects at a relatively low cost. For example, if a planning study (such as a transportation plan or visitor use management plan) is conducted, ensure that walking and bicycling are also considered. If a road is being repaved, consider adding a bike lane or crosswalk into the roadway design. Parks can also coordinate with local or regional transportation initiatives to build out connected bicycle and pedestrian networks.

Identify potential partners.

Partners can play an integral role in successfully pursuing, planning, and implementing active transportation projects that benefit parks and the surrounding communities. Potential partners are as wide-ranging and diverse as the parks themselves and can bring a variety of skills and resources to a project. Potential partners could include gateway communities, regional planning organizations, state and local transportation departments, friends of the park groups, national walking and bicycling organizations, public health agencies or healthcare organizations, and many others.

Think creatively about funding sources.

Funding for active transportation projects and programs can come from a variety of sources, including those beyond traditional NPS transportation and operational funding. For example, funding may be leveraged through partnerships, formal agreements, and external federal funding sources administered through state and local governments or through regional or metropolitan planning organizations.1 Funding could also come through grants from nonprofits or corporations, or through concessions agreements or donations, and other philanthropic partnerships.2

Monitor and evaluate improvements.

After implementing active transportation projects and programs, consider how these have changed park and surrounding conditions, visitation trends, and the visitor experience. Continually evaluating performance will help to identify what is working well, where modifications might be needed, and what strategies could be expanded.

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Figure ES-2: Valley Forge National Historical Park, Pennsylvania. (Source: U.S. DOT Volpe Center)

End Notes 1 NPS External Transportation Funding Opportunities for National Parks (2018).

https://www.nps.gov/subjects/transportation/funding.htm

2 NPS Director’s Order #21: Donations and Philanthropic Partnerships (2016).

https://www.nps.gov/policy/DOrders/DO_21.htm

NPS Active Transportation Guidebook https://www.nps.gov/subjects/transportation/funding.htm https://www.nps.gov/policy/DOrders/DO_21.htm xviii

Table of Contents

Introduction Introduction IN-1 Guidebook Organization IN-1 What is Active Transportation? IN-3 Benefits of Active Transportation and Support for NPS Goals and Strategic Initiatives IN-3 Building Partnerships Beyond Park Boundaries IN-4

Chapter 1: Legal and Policy Framework Introduction 1-1 National Park Service Policies Relevant for Active Transportation 1-1 Additional Federal Provisions Relevant in National Parks 1-3 U.S. Department of Transportation Pedestrian and Bicycle Funding and Priorities 1-4 Coordination at the State and Local Levels 1-5 Appendix 1-6 Additional Resources 1-7

Chapter 2: Planning and Elements of Project Development Introduction 2-1 What is Transportation Planning? 2-1 Transportation Planning within the NPS 2-1 Linking to State and Regional Transportation Planning 2-4 Transportation Funding Opportunities 2-6 Steps in Park Level Planning and Project Scoping 2-6 Additional Resources 2-11

Chapter 3: Infrastructure and Multimodal Connectivity Introduction 3-1 Infrastructure Policy and Design Guidelines 3-1 Types of Pedestrian Infrastructure 3-2 Types of Bicycle Infrastructure 3-4 Types of Multiuse Infrastructure 3-10 Wayfinding and Signs for Bicyclists and Pedestrians 3-13 Strategies to Enhance Multimodal Connectivity 3-16 Additional Resources 3-17

Chapter 4: Bicyclist and Pedestrian Safety Introduction 4-1 National Initiatives & Principles Supporting Active Transportation Safety 4-1 Improving Safety with Engineering (Infrastructure) 4-3 Improving Safety with Education and Information 4-11 Improving Safety with Enforcement Strategies and Emergency Response 4-14 Additional Resources 4-16 xix

Chapter 5: Partnerships and Funding Introduction 5-1 Promoting Active Transportation through Partnerships 5-1 Potential Partners 5-2 Strategies for Building Connections between Parks and Communities 5-6 Funding and Partnerships 5-9 Local and Private Funding 5-10 Formalizing Partnerships through Agreements 5-11 Additional Resources 5-14

Chapter 6: Visitor Activities and Programs Introduction 6-1 Bicycle and Walking Tours and Classes 6-2 Long-Distance Active Travel 6-5 Policies Promoting Active Travel 6-6 Communication and Visitor Outreach 6-7 Considerations for Implementing Active Transportation Programs 6-10 Additional Resources 6-12

Chapter 7: Open Streets Opportunities in National Parks Introduction 7-1 Existing NPS Car-Free Opportunities and Programs 7-2 Open Streets Best Practices and Key Considerations for National Parks 7-5 Getting Started Guide for Car-Free Opportunities 7-8 Additional Resources 7-10

Chapter 8: Bicycle Rental and Bikeshare Systems Introduction 8-1 Overview of Bicycle Rentals 8-2 Overview of Bike Share Systems 8-5 Additional Resources 8-12

Chapter 9: Employee Programs and Park Operational Uses Introduction 9-1 Benefits of Workplace Active Transportation 9-1 Use of Employee Bicycle Fleets 9-2 Employee Active Transportation Programs and Incentives 9-6 Additional Resources 9-8

Chapter 10: Innovative Technologies and Emerging Trends Introduction 10-1 The Value of Active Transportation Data 10-1 Collecting Bicycle and Pedestrian Count Data 10-2 Crowdsourced Nonmotorized Travel Data 10-5 Utilizing Mobile Apps for NPS Visitor Experience 10-6 Use and Considerations for Electric Bikes and National Parks 10-7 Use and Considerations for Fat Bikes and National Parks 10-10 Considerations for E-Scooters and Micromobility 10-13 Additional Resources 10-16

Sleeping Bear Dunes National Lakeshore, Michigan (Source: NPS)

Introduction This chapter introduces the content and organization of the Guidebook. It outlines the benefits of active transportation for parks and surrounding communities, and details NPS strategic goals and programs that active transportation supports.

IN-1Introduction

Traveling to or exploring national parks by foot, bicycle, or other nonmotorized means provides visitors with opportunities to experience natural, cultural, and historical places in unique ways. Active transportation infrastructure and programs offer a broad range of benefits to parks and surrounding communities, and help parks and communities better manage vehicle congestion, promote resource preservation, and accommodate current and increased visitation by providing alternatives to driving. Active transportation plays a key role in connecting communities with parks and providing access for people who do not drive or have a car.

With many national parks historically designed for motorized vehicle access, new approaches are needed to offer alternative ways to access parks and to support visitors of all backgrounds and abilities in safely walking and bicycling in and around parks.

These changes can take the form of installing new infrastructure, but they can also involve implementing programs or educational activities to promote walking and bicycling.

This Guidebook was developed through a collaboration of bicycle and pedestrian professionals, transportation experts, National Park Service (NPS) staff, and partners. It is intended as a resource for parks, partners, and gateway communities interested in encouraging and promoting nonmotorized access, particularly walking and bicycling, to and within national parks. The goal of this document is to inspire NPS staff as well as community, tribal, and local government partners to consider potential areas of improvement for multimodal access and connectivity.

The Guidebook also highlights a variety of resources, both within the NPS and external to the agency, that may be helpful in developing ideas and implementing projects and programs.

Opportunities for improving walking and bicycling to and within a national park can be diverse and reflect the unique environment of the park and surrounding community. Information in this Guidebook is applicable to a wide range of contexts and settings, from small, urban historic sites, to large, remote parks with extensive road networks. The importance of collaboration with partners in the surrounding community is also emphasized throughout the Guidebook, as partnerships can help advance the development of active transportation infrastructure and programs for parks of all sizes.

The Guidebook focuses on several topic areas, highlighted below, and incorporates case studies and best practices as examples for success and for challenges that may arise.

Guidebook Organization The Guidebook contains visual cues to highlight examples, key takeaways, and important points for the reader:

This symbol indicates an in-text NPS example.

Blue boxes indicate important facts or information relevant to the section’s content.

Green boxes indicate important case studies relevant to the section’s content.

Figure IN-1: A bicyclist in Fort Ord National Monument in California on Juan Bautista de Anza Trail. (Source: NPS)

IN-2 NPS Active Transportation Guidebook

The following provides a brief overview of the topic areas included within the subsequent chapters that make up the NPS Active Transportation Guidebook:

• Chapter 1. Legal and Policy Framework:

Provides an overview of NPS specific laws, regulations, and policies, as well as federal, state, and local laws that can support parks and partners in pursuing bicycling and walking projects.

• Chapter 2. Planning and Elements of Project Development: Provides an overview of transportation planning at the NPS and at state and regional agencies; NPS management authorities and park goals; and an overview of project development and inventorying active transportation infrastructure, programs, opportunities, and needs.

• Chapter 3. Infrastructure and Multimodal Connectivity: Introduces types of active transportation infrastructure (e.g., pedestrian pathways, multiuse trails, bike lanes, signs/ wayfinding, pavement markings, bicycle racks, etc.) and strategies for improving connectivity between modes.

• Chapter 4. Bicyclist and Pedestrian Safety:

Provides resources to help parks and their partners evaluate and improve safety for active transportation modes. It discusses safety strategies centered around the “four E’s” of transportation safety: engineering, education, enforcement, and emergency response.

• Chapter 5. Partnerships and Funding: Explains the benefits of and purposes for partnerships and physical connections with surrounding communities, partner funding opportunities, and case studies of successful active transportation partnerships.

• Chapter 6. Visitor Activities and Programs:

Discusses visitor programming related to guided tours, special events, bicycle travel policies and touring routes, as well as policy considerations.

• Chapter 7. Open Streets Opportunities in National Parks: Explores the potential benefits of open streets, or “car-free” opportunities in national parks and provides best practices based on existing case studies.

• Chapter 8. Bicycle Rental and Bikeshare Systems: Discusses types of bikeshare and bicycle rental systems, opportunities and constraints, and case studies.

• Chapter 9. Employee Programs and Park Operational Uses: Explores opportunities to support and promote active transportation for employees such as incentive programs and bicycle fleets used for operations activities.

• Chapter 10. Innovative Technologies and Emerging Trends: Discusses other emerging topics, such as bicycle and pedestrian counts, electric bicycles (e-bikes), fat tire bicycles, and the implications of automated vehicles on pedestrian and bicycle safety and infrastructure.

NPS Mission

The National Park Service preserves unimpaired the natural and cultural resources and values of the National Park System for the enjoyment, education, and inspiration of this and future generations. The Park Service cooperates with partners to extend the benefits of natural and cultural resource conservation and outdoor recreation throughout this country and the world.1

IN-3Introduction

What is Active Transportation?

The NPS defines active transportation as any form of human-powered transportation that uses physical activity to travel from one destination to another.

Pedestrians (including hikers and people with mobility aids such as wheelchairs)

Bicyclists (including people using electric bikes)

Although this Guidebook primarily focuses on pedestrians (including people using mobility aids such as wheelchairs) and bicyclists, active transportation can encompass a variety of nonmotorized transportation modes, such as hiking, in-line skating, roller skating, skateboarding, ice skating, snowshoeing, cross-country skiing, dog mushing, backpacking, canoeing, or kayaking.

Many bicycling and hiking trips to and within national parks have both a transportation and recreational purpose and often use the same infrastructure, such as multiuse trails or bicycle racks. While this Guidebook has a greater focus on transportation, many topics support both active transportation and recreation.

Benefits of Active Transportation and Support for NPS Goals and Strategic Initiatives Providing active transportation opportunities offers a broad range of benefits to parks and surrounding communities, while supporting the NPS mission and strategic goals. These benefits include:

• Resource Protection: Helping to avoid and mitigate the negative impacts of automobiles on air quality and carbon emissions, wildlife, and other natural resources within national parks.

• Visitor Experience: Enabling visitors to experience parks in a more natural setting, without the noise or disturbance of vehicles.

• Equitable Access: Providing access opportunities for underserved communities, such as individuals with disabilities and those who do not own a vehicle or who do not drive. Ensuring equitable access requires recognizing that each person has different circumstances and allocating the resources needed to achieve equal outcomes.

• Public Health: Providing meaningful and fun ways to be physically active, as well as reap the physical, mental, social, and spiritual health benefits of being outside in a park or natural setting.

• Congestion Relief: Helping to relieve vehicle congestion and accommodate increasing visitation by providing alternatives to driving.

• Economic and Social Benefits: Promoting economic growth by attracting visitors who will then support local businesses (e.g., bike shops, sports stores, restaurants), providing jobs and contributing to the quality of life for surrounding communities. In some cases, active transportation opportunities may also increase visitation outside of a park’s typical peak season.

In addition to the benefits described above, providing opportunities for active transportation to and within our national parks can advance many agency and Department strategic goals, which generally include:

• Reducing Congestion:

The Congestion Management Program2 promotes multiple strategies to reduce vehicle congestion to and within parks, including the provision of motorized and nonmotorized alternatives to the private vehicle and the incorporation of bicycle and pedestrian facilities and infrastructure.

https://www.nps.gov/subjects/transportation/congestion-management.htm

IN-4 NPS Active Transportation Guidebook

• Improving Safety:

The Transportation Safety Program3 promotes engineering, education, enforcement, and emergency services safety strategies to reduce the likelihood and severity of traffic crashes, including those related to active transportation.

• Improving Accessibility:

The Accessibility Program4 is committed to ensuring that people with disabilities have equal opportunity to benefit from facilities, programs, services, and activities in the National Park System whether they are indoors or outdoors. The Accessibility Strategic Plan5 is a five-year strategic plan that discusses approaches for ensuring that national parks can be enjoyed by individuals with disabilities.

• Confronting Climate Change:

The Climate Change Response Program6 advances efforts to address the effects of climate change across the breadth of the National Park System.

The Green Parks Plan (GPP)7 promotes sustainable park operations and management, the reduction of greenhouse gas emissions, and environmental stewardship. The GPP “Green our Rides” goal is to reduce transportation-related greenhouse gas emissions, which account for 40 percent of NPS emissions according to the GPP. The Climate Friendly Parks Program8 is a partnership between the U.S. Environmental Protection Agency (EPA) and the NPS that protects parks’ natural and cultural resources and ensures their preservation for future generations. Reducing fuel use and greenhouse gas emissions from park facilities and operations is one goal of this program.

• Encouraging Healthy Communities:

The NPS Office of Public Health promotes the health and well-being of park visitors through Healthy Parks Healthy People US.9 This program recognizes and promotes the health benefits of parks and public lands to build upon the contributions that parks play in creating healthy communities.

• Advancing Equity, Inclusion, and Access:

The NPS Office of Relevancy, Diversity, and Inclusion12 is a champion for an organizational culture that is increasingly inclusive and participatory, which values the diverse ideas, experience and background of every individual, and empowers an innovative, flexible and resilient NPS to engage the opportunities and challenges of the future.

In 2022, the Department of the Interior released its first Equity Action Plan.13 This plan lays the foundation to achieve outcomes that remove barriers to equal opportunity, including equitable access to parks, and deliver resources and benefits equitably to all.

• Advancing Transportation Innovation:

The NPS protects park resources and provides access to millions of visitors each year by planning, implementing, and managing innovative transportation systems. The Emerging Mobility10 program supports the research and implementation of emerging transportation trends across the park system, including electric vehicles and charging, micromobility, and traveler information technologies. In 2021, the Department of the Interior (DOI) and the U.S. Department of Transportation (U.S. DOT) signed a memorandum of understanding11 to enhance collaboration on transportation innovation efforts in the National Park System.

Building Partnerships Beyond Park Boundaries This Guidebook encourages park staff and their partners to focus on active transportation infrastructure and programs both within and outside of park boundaries to create meaningful connections.

Partnerships between parks and local communities and regional planning agencies (i.e., rural and metropolitan planning organizations, economic development agencies, and local transportation departments) can improve physical connections, provide joint programming support, develop projects of mutual benefit, share maintenance of facilities, and leverage funding. The Partnerships and Funding chapter of this Guidebook provides more information and best practices for local partnerships.

https://www.nps.gov/subjects/transportation/safety.htm https://www.nps.gov/subjects/accessibility/index.htm https://www.nps.gov/aboutus/upload/All_In_Accessibility_in_the_NPS_2015-2020_FINAL.pdf https://www.nps.gov/aboutus/upload/All_In_Accessibility_in_the_NPS_2015-2020_FINAL.pdf https://www.nps.gov/orgs/ccrp/index.htm https://www.nps.gov/subjects/sustainability/green-parks.htm https://www.nps.gov/subjects/climatechange/cfpprogram.htm https://www.nps.gov/subjects/healthandsafety/health-benefits-of-parks.htm https://www.nps.gov/orgs/1244/index.htm https://www.nps.gov/orgs/1244/index.htm https://www.doi.gov/sites/doi.gov/files/eo13985-02-10-2022-doi-equity-action-plan-final-with-cover.pdf https://www.nps.gov/subjects/transportation/emerging-mobility.htm https://www.nps.gov/orgs/1548/upload/2021-mou-between-doi-and-dot-re-transportation-in-parks.pdf

IN-5Introduction

End Notes 1 NPS Mission Statement (2021). https://www.nps.gov/aboutus/index.htm

2 NPS Congestion Management Program (2021). https://www.nps.gov/orgs/1548/congestion-management-program.htm

3 NPS Accessibility (2021). https://www.nps.gov/subjects/accessibility/index.htm

4 NPS Transportation Safety (2018). https://www.nps.gov/subjects/transportation/safety.htm

5 NPS All In! Accessibility in the National Park Service 2015-2020. https://www.nps.gov/aboutus/upload/All_In_ Accessibility_in_the_NPS_2015-2020_FINAL.pdf

6 NPS Climate Change Response Program (2021). https://www.nps.gov/orgs/ccrp/index.htm

7 NPS Green Parks (2021). https://www.nps.gov/greenparksplan/

8 NPS Climate Friendly Parks Program (2021). https://www.nps.gov/subjects/climatechange/cfpprogram.htm

9 NPS Healthy Parks Healthy People (2022). https://www.nps.gov/subjects/healthandsafety/health-benefits-of-parks.

htm

10 NPS Emerging Mobility (2022). https://www.nps.gov/subjects/transportation/emerging-mobility.htm

11 Memorandum of Understanding between the Department of the Interior and the Department of Transportation Regarding Transportation Innovation in the National Park System (2021). https://www.nps.gov/orgs/1548/ upload/2021-mou-between-doi-and-dot-re-transportation-in-parks.pdf

12 NPS Office of Relevancy, Diversity and Inclusion (2021). https://www.nps.gov/orgs/1244/index.htm

13 Department of the Interior Equity Action Plan (2022). https://www.doi.gov/sites/doi.gov/files/eo13985-02-10- 2022-doi-equity-action-plan-final-with-cover.pdf https://www.nps.gov/aboutus/index.htm https://www.nps.gov/orgs/1548/congestion-management-program.htm https://www.nps.gov/orgs/1548/congestion-management-program.htm https://www.nps.gov/subjects/accessibility/index.htm https://www.nps.gov/subjects/transportation/safety.htm https://www.nps.gov/aboutus/upload/All_In_Accessibility_in_the_NPS_2015-2020_FINAL.pdf https://www.nps.gov/aboutus/upload/All_In_Accessibility_in_the_NPS_2015-2020_FINAL.pdf https://www.nps.gov/orgs/ccrp/index.htm https://www.nps.gov/greenparksplan/ https://www.nps.gov/subjects/climatechange/cfpprogram.htm https://www.nps.gov/subjects/healthandsafety/health-benefits-of-parks.htm https://www.nps.gov/subjects/healthandsafety/health-benefits-of-parks.htm https://www.nps.gov/subjects/transportation/emerging-mobility.htm https://www.nps.gov/orgs/1548/upload/2021-mou-between-doi-and-dot-re-transportation-in-parks.pdf https://www.nps.gov/orgs/1548/upload/2021-mou-between-doi-and-dot-re-transportation-in-parks.pdf https://www.nps.gov/orgs/1244/index.htm https://www.doi.gov/sites/doi.gov/files/eo13985-02-10-2022-doi-equity-action-plan-final-with-cover.pdf https://www.doi.gov/sites/doi.gov/files/eo13985-02-10-2022-doi-equity-action-plan-final-with-cover.pdf

Fort Ord National Monument, California (Source: Bhoj Rai)Fort Ord National Monument, California (Source: Bhoj Rai)

Chapter 1: Legal and Policy Framework This chapter outlines the framework of laws, regulations, and policies that can support the NPS and its partners in pursuing active transportation projects. It covers key topics such as accessibility and environmental compliance, describes relevant initiatives from the U.S. Department of Transportation, and discusses how to coordinate with transportation partners at the state and local levels.

1-1Chapter 1: Legal and Policy Framework

Familiarity with laws, regulations, policies, guidance, and initiatives relevant to active transportation provides an important foundation to successfully pursue and advance projects and programs that support walking and bicycling. This chapter provides an overview of NPS- specific regulations and policies, as well as other federal, state, and local laws that can help support the NPS and its partners in pursuing projects that encourage walking and bicycling in parks.

Service-wide policies, including the NPS Management Policies (2006), and regulations, including the NPS Bike Rule and E-Bike Rule, guide decision making for how certain active transportation projects can be implemented on NPS-managed roads and property.

Unit-level regulations, many of which are laid out in a park’s Superintendent’s Compendium, have specific requirements relating to the particular park.

In addition to where the project is implemented, the funding source for the project often dictates what regulations apply. Federal laws and policies, including the National Environmental Policy Act (NEPA) and accessibility guidelines, apply to any project that receives federal funding. Since a majority of funding for transportation-related projects is acquired through federal transportation funding programs, the U.S.

Department of Transportation (U.S. DOT) often plays a major role in ensuring federally mandated policies and regulations are followed. Finally, state, regional, and local governments may also have laws and policies related to walking and bicycling that could affect projects in parks and gateway communities.

National Park Service Policies Relevant for…