CHAPTER FOUR: STRATEGIES AND PROCESS
4
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FM Metropolitan Bicycle and Pedestrian Plan 2005
Fargo-Moorhead Metropolitan Council of Governments
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4. STRATEGIES AND PROCESS
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‘Meeting the safety challenges that exist for bicycle transportation will allow bicycle
transportation to contribute to solutions of even more intractable challenges for transportation
and society at large.’
[The MNDOT Bicycle Modal Plan]
4.1 Challenges and Public Concerns
The greatest challenge for developing an adequate bicycle and pedestrian network is providing a
continuous, safe, accessible route. The various factors that oppose the development of a consummate
network are:
Development pattern: Sprawl development often discourages walking and biking.
The present development patterns often segregate the major commercial centers,
recreational and service areas from the residential and work areas. This limits the
viability to use biking or walking as an alternative mode of transportation.
Physical Barriers: Physical barrier is a major problem for pedestrians and bikers.
The presence of heavy traffic corridors without adequate sidewalk/bikeway facilities
(inadequate curb cuts at intersections, narrow sidewalks/shoulders, inadequate
underpasses/bike bridges), dissuade people from trying alternative modes. Similarly,
natural barriers like rivers and ditches too pose as problems for alternative modes of
transportation.
Safety and comfort: The greatest threat to alternative mode users is the speed and
volume of automobile traffic. Most people hesitate to walk or bike along motor
corridors or even cross at intersections for fear of being hit by a speeding vehicle.
There are people who are concerned about the provision of adequate lighting and
police patrols along park trails and high crime rated areas like the downtowns.
Inviting ambience: Often low maintained bike/pedestrian facilities (cracked sidewalk
pavements, unclean underpasses, and unusable bike bridges) discourage people from
using alternative modes. Since activities like biking and walking bring people closely
in touch with the physical environment, it is essential that the ambience around the
bike and pedestrian facilities is comfortable, clean, and attractive.
4.2 strategies
Keeping in view the goals and objectives developed in the previous section of the plan, three types of
strategies have been identified: Design strategies, Non-construction strategies and Project selection
Strategies. These strategies are aimed at solving the various challenges and public concerns identified
through the existing system characteristics analysis process and the public involvement process.
4.21 Design strategies
Adequate design elements can often solve and address a majority of the challenges faced by pedestrians,
and bicyclists. The plan recommends the use of such design elements to promote an efficient bicycle and
pedestrian system in the Fargo Moorhead Metropolitan area. The design elements have been categorized as
micro level – those concerning a particular facility and the macro level – those concerning the network as a
whole.
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Fargo-Moorhead Metropolitan Council of Governments
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Micro level:
Sidewalk/bike path standards – Standardizing the specifications of sidewalks, bike ways,
shared use paths or multi use paths ensure a minimum level of quality. These standards make
provision for ADA accessibility, safety concerns and adequate functioning of the facility.
Appendix A.4 provides the standards recommended by the Institute of Transportation
Engineers (ITE), Manual on Uniform Traffic Control Devices (MUTCD), American
Association of State Highway and Transportation (AASHTO), Americans with disabilities
Act Accessibility Guidelines (ADAAG) and the MNDOT Bicycle Modal Plan.
Traffic calming – According to the ITE, traffic calming is the combination of mainly physical
measures that reduce the negative effects of motor vehicle use, alter driver behavior and
improve conditions for non-motorized street users. Traffic calming goals include increasing
the quality of life, incorporating the preferences and requirements of the people using the area
along the streets or at intersections, creating safe and attractive streets, helping reduce the
negative effects of motor vehicles on the environment, and promoting pedestrian, bicycle and
transit use. Appendix A.4 provides a brief description of the various traffic calming measures
used for controlling traffic movements.
Safe Signalization/Crossing treatments – Adequate crossing treatments enable the safe
crossing of pedestrians and bicyclists across lanes of traffic. Crossing treatments are
categorized as passive treatments and active treatments. Automated treatments like traffic
signals and audible signals are called active treatments and treatments like curb ramps and
crosswalks are called passive treatments. The Federal Highway Administration (FHWA) has
developed guidelines for crosswalk treatments which have been provided in detail in
Appendix A.4.
ADA accessibility - The American with Disabilities Act of 1990 (ADA) prohibits
discrimination in transportation and access to facilities. The Federal Highway Administration
report on Designing Sidewalks and Trails for Access: Review of Existing Guidelines and
Practices recommends accessible designs for sidewalk and trail facilities (refer to Appendix
A.4).. These guidelines help design shared use paths keeping in consideration, the needs of
the handicapped and the physically challenged.
Lighting – Adequate pedestrian scale lighting standards provide a safer ambience to the bike
and pedestrian facility users by making potential hazards visible to them (refer to Appendix
A.4).
Rails to trail – Formed in 1986, the Rails to Trails Conservancy promotes an interconnected
trail system throughout the United States using abandoned railroad lines. In 1993 this non
profit charity organization published the Trails for the Twenty First Century to offer technical
assistance, and public education in making the conversion of rails to trails. To date, over
13,150 miles of rail throughout the United States have been converted to trails.
In the past, the City of Fargo Park Board has taken advantage of this type of opportunity with
the abandonment of the Old Milwaukee Trail. In 2001, FM COG completed the FM Railroad
Trackage Consolidation Feasibility Study. The objective of this study was to determine the
feasibility of consolidating Burlington Northern Santa Fe trackage currently bisecting the
Central Business districts, and rerouting north and westward train traffic from 22nd Street
North to the 12th Avenue North rail yard. The study deemed the project feasible and shows
that potential opportunities may exist to create a shared use path in this low income area.
Signage – Proper directional/ traffic signage and way finding boards are a significant part of a
good bike and pedestrian network. It gives confidence to the facility user that he is on the
right track and safe from potential hazards. Standardizing signage specifications ensures that
the signage is properly located, is clear, legible and serves its purpose adequately. Refer to
Appendix IV for signage standards.
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Fargo-Moorhead Metropolitan Council of Governments
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Streetscaping – Provision of aesthetical elements like street planters, benches, and ornamental
lampposts enhance the attractiveness of a facility. Trees at appropriate locations not only
provide shade but also psychologically create a separation between the motorist’s path and the
bike/pedestrian path.
Bridge Drain Placement - When designing bridge structures, consideration should be given
for bicycle and pedestrian facilities in the area. If not adequately designed water may drain
directly onto the shared use path creating an unpleasant and dangerous situation for users.
Historic Bridges – According to Better Roads (November 2000), city, county, and township
bridge repair and reconstruction is an important part of an efficient bike and pedestrian
network. The percentage of structurally deficient or functionally obsolete structures was
around 15% and 32% in Minnesota and North Dakota respectively. Each year funding is set
aside for the repair and reconstruction of these facilities. Opportunities exist to use some of
these old structures, such as truss bridges, for bicycle and pedestrian river crossings within the
metropolitan area. One such project has been the relocation of the 40th Avenue South
Structure over the Sheyenne River South to provide a linkage to the future shared use path
following the transmission line. The use of these old structures may lower the overall cost of
the project, providing additional options for funding, and creating locations with historical
value.
Macro level:
Land use – Land Use encouraging mixed development and smart growth might help in
promoting bicycle and pedestrian facilities. Mixing land use allows the placement of
residential neighborhoods within close proximity to trip generators such as retail properties
and schools. Decreasing the distance of the trip promotes bicycle and pedestrian use while
discouraging motor vehicle use.
Human Scale Design – Human scale design refers to designs which are smaller, close spaced,
compact and more close to human perceptive dimensions. Refer to Appendix A.4 for detailed
description of human scale design. Designing spaces to this scale promotes active
transportation like walking and bicycling, since everything seems to be in accessible distance.
Other Services – Amenities like restroom facilities, and complaint boxes at regular intervals
also increase the efficiency of a bike and pedestrian facility.
Utility Right of Way - Purchasing land during corridor development can be an expensive
endeavor. At times these additional costs to the overall cost of the shared use path can actually
kill the project. Using utility right-of-ways is one solution to alleviate the excess cost.
4.22 Non Construction Strategies
Educational Strategies:
School Programs for Bicycle education
Effective Cycling Curriculum – League of American Bicyclists has a number of
bicycling training courses for all age groups. Effective Cycling Curriculum is
modeled especially for adult cyclists and for kindergarten to third graders and
trains them for safe bicycling.
Basics of Cycling – This curriculum developed by the Bicycle federation of
America can be structured for fourth and fifth graders trains them on ‘high risk
situation’, ‘bike handling skills’, and ‘traffic skills’.
Driver’s training course – Driver’s training courses might include a quick
course on bicycling etiquettes, thus educating the motorists how to treat a cyclist
on road.
FM Metropolitan Bicycle and Pedestrian Plan 2005
Fargo-Moorhead Metropolitan Council of Governments
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Educate parents – Training sessions might be organized for parents to teach
their children the basics of safe bicycling.
Bicycle helmet programs - Programs can be designed in coordination with the police
departments and local bicycling advocacy groups to distribute helmets, education on the
advantages of using a helmet and training for how to use bike helmets
Motorist training – Motorists might be given bicycle education at driver’s training programs,
traffic schools for violators, or during driver’s licensing exams.
Educate Motorists and Bicyclists on providing safe pedestrian facilities for the blind and
the handicapped
Workshops – Workshops can be held on a regular basis wherein local bicycle commuters and
bicycle group members can come and share their expertise on safe biking, maintenance of
their bike, and how to coordinate with motorists.
Promotional Strategies:
Walk-ability and bike-ability checklist – Encouraging neighborhood organizations to
maintain a local walk-ability and bike-ability checklists will keep them involved with the
process of maintaining an efficient bike and pedestrian network and help spread the awareness
about alternative modes of transportation
Bike Maps and travel guides- Maps and travel guides made available on the jurisdictional
websites (downloadable /print versions), bike shops, and public places, libraries, schools, and
other institutions will especially help the new residents of the community who are eager to
walk and bike.
Employee benefits – Providing special incentives to employees using bicycle to work will
encourage and promote bike commuting.
4.23 Project selection strategy
The project selection strategy recommends that a principal bike route network be identified from the
existing and future bike and pedestrian network. The intent is to channel the limited bike improvement
funds to a greater network serving the entire metropolitan area instead of serving a particular area which
might not benefit the community as a whole, by giving higher priority to those projects which are a part of
the principal bike network or linked to the principal bike network.
4.3 Project Selection Process
The project selection involved the following process:
The short term and long term projects in the 2000 Metropolitan Bicycle and Pedestrian Plan were
reviewed for consideration for the new project list
The Projects which were implemented were excluded from the list. This new list was prepared
considering the consistency review plan completed in 2004
This list was then compared to the bicycle and pedestrian projects listed in the 2004 Metropolitan
Transportation Plan (MTP). The projects not listed in the consistency review but listed in the MTP
were included to the new list.
Other potential projects were identified by the COG staff in coordination with the local planning
and engineering offices. These potential projects were based on the future land use plans,
jurisdictional growth plans and public input received at the public involvement process.
The recommended projects were then reviewed by the Metro Trails Committee and the financial
strategies for implementation developed. According to federal transportation rules, Metropolitan
Planning Organizations are required to identify existing and projected revenue sources for projects
included in their metropolitan plans.
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Fargo-Moorhead Metropolitan Council of Governments
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The local governments were then requested to constraint their short range projects by providing
their anticipated revenue sources which would reasonably be expected for implementing their list
of short range projects. Projects without identified revenue sources were recommended for the
plan’s long range element.
The projects were also evaluated based on the four screening factors. Projects which met all four
screening factors were eligible for short term while those that didn’t meet less than half or none of
the screening factors were listed as long term projects.
Finally both the short range and long range projects were prioritized based on its being a part of
the identified Principle Bike Network.
4.31 Principal Bike Route Network:
Based on a set of rankings established (described in Section 4.6) for the existing and future bicycle and
pedestrian network, a principal metropolitan bicycle and pedestrian network was identified by COG staff
(Map 4.1).
The main elements of the principal bikeway system are designed as:
The spacing between the principal bikeways shall not be more than 2 miles
The principal bike route selection would be determined by the ranking methodology such that
first preference would be given to a higher ranking bike route.
The principal bike routes would be interconnected and form a grid pattern
The principal bike routes would connect the east-west and north – south limits of the
metropolitan area
The principal bike route would serve as a significant commuter route and provide access to
major trip generators.
The missing links and facility improvements on the principal bike routes would be given the
first priority during project selections
4.32 Principal Bike Route Selection Criteria
A ranking methodology based on AASHTO guidelines was developed to evaluate the existing and future
bike network as developed in the 2000 Metropolitan bicycle and pedestrian plan. The process is detailed in
Appendix A.5. Map 4.2 shows the ranking of the existing and future bikeways in the metropolitan area.
A set of performance standard criteria were selected based on qualitative and quantitative variables that
meet the needs of potential users and determine the desirability and efficiency of a bike network. The
variables used were:
Directness of the route i.e how long the route runs
Accessibility to various trip generators
Continuity of the route i.e the number of dead ends or sudden break in connection with other
bike facilities
Connectivity of the route to other bikeways and pedestrian facilities
Safety standards of the route
The type of land use the route accesses
Number of stop signs on the route
FM Metropolitan Bicycle and Pedestrian Plan 2005
Fargo-Moorhead Metropolitan Council of Governments
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Conflicts with vehicular traffic
The level of route attractiveness
Financial Feasibility of route construction and maintenance
Ease of Implementation
4.33 Project Screening Factors
One of the requirements of the TEA-21, ISTEA and now the SAFETEA LU is that metropolitan planning
efforts should address as appropriate the technical, environmental, financial and social impact of proposed
transportation improvements. This legislation established four screening factors to evaluate project
alternatives as part of its planning process. The purpose of the evaluation criteria is to define the local
jurisdictions’ role in the decision making process and to provide a consistent set of criteria and a process by
which projects would be programmed into the plan.
The four screening factors used to analyze the projects are:
1.
Technical Soundness
Technically sound projects are those feasible improvements identified by the Metro Trails
Committee which were intended to resolve major conflicts and/or provide necessary links to
major trip generators.
2.
Environmental Sensitivity
Environmental sensitivity was evaluated based on known environmental issues in the area,
which had the potential to be impacted, such as cultural issues, wetlands, archaeological sites;
impacts to trees and historical significance. The projects that are recognized to have impacts
require more detailed evaluation during the project concept report or other reports that analyze
the project at a greater level of detail prior to engineering and design activities. Three special
environmental factors analyzed during the screening process were:
Environmental Justice:
In 1994, Executive Order 12898 was issued requiring that each federal agency identify and
avoid disproportionately high and adverse effects on minority and low income populations
during implementation of programs, policies and activities. In 1999, the Federal Highway
Administration issued the memorandum Implementing Title VI requirements in Metropolitan
and Statewide Planning, which provides clarification on how to ensure that environmental
justice is considered during current and future transportation planning. Metro COG used data
from the 2000 census to create a map (refer to Appendix A.8)noting areas with 25% or more
of the population with incomes less than 125% of poverty level, and with 25% or more of the
population of a minority race. Metro COG staff compared future recommended bicycle and
pedestrian facilities to this map and identified the projects, as shown in Tables 5.6-5.19,
which may need to be examined in more detail based on this information.
Wetlands:
Metro COG also produced a map of known wetlands (Appendix A.8) using information
from the National Wetland Database Inventory. Projects which were seen to have a
potential effect of wetlands were noted, and may need further examination during the
project development phase.
Historical sites:
Numerous historical sites exist within the metropolitan area as shown on the Historical
Site Map in Appendix A.8. Most of these recognized areas are located near the Red River
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Fargo-Moorhead Metropolitan Council of Governments
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Corridor and in the downtown areas in the cities of Fargo and Moorhead. Projects which
potentially affect these sites may need further examination during the project
development phase.
3.
Financial Feasibility
To determine if a project was financially feasible, an assessment of existing financial
conditions was performed. This involved meeting with local jurisdictions to determine
existing and anticipated funding sources that could “reasonably be expected” to be available
for implementing proposed improvements to the bicycle and pedestrian system. All short
range projects were required to be financially constrained. Projects without an identified
funding source were recommended for the Plan’s long range element.
4. Social Acceptability
Social acceptability was determined by local elected officials based on their review of public
input. Public input opportunities were made available at times throughout the development of
the Plan, including the local review of the Draft document. After receipt and consideration of
public comments on the Public Comments on the draft plan, the final Metropolitan Bicycle
and Pedestrian Plan was prepared and presented for adoption by all local jurisdictions and the
COG Policy Board. This step completed the planning process, and authorized the local
implementation of the plan.
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Fargo-Moorhead Metropolitan Council of Governments
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