Delray Beach Pedestrian/Bicycle Task Team

Final Report

•••••• I - - - -

UNrOll BOUlEVARD

May 2003 Delray Beach, Florida

- 1 -

Table of Contents

Introduction ........................................................................................ 3

Methodology ....................................................................................... 4

Research and Evaluations .............................................................. 4

Crash Statistics ............................................................................. 5

Expert Advice ................................................................................ 7

Observations ...................................................................................... 8

Infrastructure ................................................................................ 8 Sidewalks Crosswalks Major Intersections Parking Bike Lanes New Developments Pathways Driver Visibility

Motorist Behavior .......................................................................... 9 Speeding Stop Signs Parking Crosswalks Traffic Signals

Education ..................................................................................... 9

Recommendations ........................................................................... 10

Master Plans ............................................................................... 11

Related Recommendations ........................................................... 16

Appendices ....................................................................................... 19

-2-

Introduction

Delray Beach, twice awarded recognition as an "All America City", has retained its charm as a seaside resort community, while beginning an urbanization of the downtown area. The downtown renaissance has created a dynamic center of cultural, retail and dining establishments combined with new multi-unit housing developments.

The increase in population corresponds to a change in the city's demographics. The 2000 Census indicates a shift from a city of retirees and seasonal residents to an expansion that includes a significant tourist population, as well as a large year-round population of vibrant young families and individuals with active lifestyles. The city currently hosts 50 special events annually attracting hundreds of thousands of visitors to downtown and seaside areas, while our climate enables outdoor activities of all kinds continuously throughout the year.

Delray Beach City Commissioners recognize that continued development is directly related to an increase in population, traffic congestion, and the need for additional pedestrian and bicycle facilities, which, if not addressed, will become impediments to further city development.

As a result, the City Commission established the Pedestrian and Bicycle Task Team in November 2002 to examine the current state of pedestrian and bicycle safety and facilities that ultimately affects quality of life issues for residents and visitors, and to provide recommendations for the implementation of a pedestrian and bicycle infrastructure system consistent with the City's Master Plan.

The Task Team acknowledges that the effects of the downtown revitalization have impacted neighborhoods citywide. The addition of high-density housing exacerbates the situation. Roadways are crowded enough throughout the year without the additional stress of high season. Seasonal and year-round residents in outlying neighborhoods are experiencing critical safety issues walking, cycling, or driving to schools, parks, places of worship, and shopping areas. Transportation statistics indicate an urgent need to improve safe access to downtown areas from outlying neighborhoods, and to surrounding Palm Beach County communities for pedestrians and cyclists while reducing traffic congestion. The pedestrian and cyclist crash and fatality rates in Delray Beach are alarming.

The Pedestrian and Bicycle Task Team recommends the City take immediate action to facilitate alternate transportation modes for residents and visitors to preserve the "village by the sea" charm and provide safe, enjoyable travel to the various attractions and neighborhoods within Delray Beach. The geography and year-round climate are ideal for walking or cycling within the city and throughout Palm Beach County. Designating specific areas for pedestrians and cyclists in addition to autos contributes to a higher quality of life for residents and encourages Delray Beach as a vacation destination, further securing the economic base.

Delray Beach has a choice to make. By creating and implementing a pedestrian and bicycle plan that facilitates alternate modes of transportation, we can keep Delray Beach livable for residents and attractive to visitors. Our ultimate goal is to retain the "village by the sea" charm that attracts residents and tourists to Delray Beach.

- 3 -

Methodology

The Pedestrian and Bicycle Task Team (Appendix A), formed by Resolution No. 88-02 (Appendix B), began by developing a timeline (Appendix C) to meet the May 31,2003 deadline, and a methodology that would ensure the best possible recommendations based on available resources. The team also investigated potential project funding sources. (Appendix D)

Research and Evaluations

• Researching Federal, State, County, and City pedestrian/bicycle crash and fatality statistics (Appendix E).

• Examining pedestrian/bicycle reference material from an array of government, not-for-profit foundations, and private sector company articles, publications, and research studies. (Appendix F)

• Reviewing the pedestrian/bicycle section of the Delray Beach Comprehensive Plan.

• Obtaining answers from City of Delray Beach staff members on more than 50 specific questions concerning sidewalk and pedestrian issues. (Appendix G)

• Mapping all data representing Delray Beach pedestrian crashes for the 9-year period ending 12/31/2001 and all bicycle crashes for the 5-year period ending 12/31/2001. (Appendix H and I, respectively)

• Analyzing pedestrian/bicycle crash data occurring during the January - August 2002 period. (Appendix J)

• Requesting advice and information from the following local experts: • Randal Krejcarek, Delray Beach City Engineer • "Bil" Phillips, Palm Beach County MPO Bike/Pedestrian Coordinator • Joy Puerta, Boca Raton Bike/Pedestrian Coordinator • Joy Riddell, Florida Pedestrian Coordinator

• Conducting street and sidewalk surveys that included an analysis of the problems seen and recommendations for improvement. (Appendix K) These surveys were beneficial in developing the recommended Pedestrian/Bicycle Master Plans and suggestions for code or ordinance changes.

- 4 -

Crash Statistics

I. Delray Beach Crash Statistics

Bicycle • Delray Beach experienced more bicycle crashes than any of the other 36 Palm

Beach County municipalities in each of the most recent four-year periods, 1998-2001.1

Although Delray Beach comprises 5% of Palm Beach County's population, bicycle crashes in Delray Beach accounted for 10% of all Palm Beach County bicycle crashes during the 1998-2001 period. 2

In 2001, Delray Beach experienced three bicycle fatalities, or 25% of all Palm Beach County bicycle fatalities. 3

In comparison, Delray Beach's three bicycle fatalities were half the total of all of Broward County's, and 30% of the total bicycle fatalities that occurred in Miami-Dade County. 3

Pedestrian Delray Beach experienced more pedestrian crashes than any of the other 36 Palm Beach County municipalities, except for one, in each of the most recent four-year periods, 1998-2001. '

Although Delray Beach comprises 5% of Palm Beach County's population, pedestrian crashes in Delray Beach accounted for 9% of all Palm Beach County pedestrian crashes during the 1998-2001 period. 2

In 2001, Delray Beach had three pedestrian fatalities, or 10% of all Palm Beach County pedestrian fatalities. 3

2001 Most Dangerous Intersections (Per Million Vehicles)' In 2001, the Atlantic Avenue/Congress Avenue intersection experienced 77 accidents and was ranked as the third worst accident-rated intersection in Palm Beach County.

The Atlantic Avenue/ Military Trail intersection experienced 80 accidents and was ranked as the fifth worst accident-rated intersection in Palm Beach County.

1 MPO of Palm Beach County Traffic Department

'2000 US Census & State of Florida Department of Highway Safety & Motor Vehicle 2001 Traffic Crash Facts Report

'State of Florida Department of Highway Safety and Motor Vehicle 2001 Traffic Crash Facts Report

4 MPO of Pam Beach County Crash Report 2001

- 5 -

The Lake Ida Road/Congress Avenue intersection experienced 43 accidents and was ranked as the 20th worst accident-rated intersection in Palm Beach County.

II. Palm Beach County Crash Statistics'

Bicycle 3

In 2001, Palm Beach County experienced more bicycle fatalities than any other Florida county. The number of bicycle fatalities in Palm Beach County was 30% more than Miami-Dade County and twice as many as Broward County.'

Pedestrian 5

• In 2001, the West Palm Beach/Boca Raton metropolitan area was ranked as the third most dangerous pedestrian area in the entire United States. In 2001, pedestrian fatalities accounted for 18% of all traffic fatalities.

III. State of Florida Crash Statistics'

Bicycle • In 2001, Florida led the nation in cyclist fatalities, both in absolute numbers, and as a

percentage of population. In 2001, Florida accounted for 127 bicycle fatalities; California was second with 105; and Texas was a distant third with 46.

Pedestrians In 2001, Florida was ranked second in pedestrian fatalities, both in absolute numbers, and as a percentage of population. In 2001, California led the nation with 711 pedestrian fatalities; Florida was second with 489; and Texas was third with 449.

5 Mean Streets, 2002; A Publication of the Surface Transportation Policy Program

6 Fatality Reporting System, NHTSA; Population - 2000 Bureau of Census

- 6 -

Expert Advice

Randal Krejcarek, City of Delray Beach Chief Engineer January 9, 2003 Pedestrian and Bicycle Task Team meeting (Appendix L)

• Distribution of Delray Beach city maps that indicated existing sidewalks, road classifications, and sidewalk deferrals

• Overview of the state of sidewalks • Explanation of the sidewalk deferral program

Joy Puerta, Bike/Ped Coordinator for the City of Boca Raton February 27,2003 Task Team work session at Veteran's Park

• Discussion of the qualifications and job responsibilities of a Bike/Ped Coordinator • Walking tour of downtown Delray Beach, with focus on street and sidewalk

deficiencies, particularly in meeting the American Disability Act (ADA) standards. • She also suggested that bikeway signage be installed on both sides of Atlantic

Avenue to alert drivers to the presence of cyclists on the roadway.

"BiI" Phillips, MPO Bike/Pedestrian Coordinator for Palm Beach County March 13,2003 Pedestrian and Bicycle Task Team meeting (Appendix M)

• Distribution of Long-Term Bicycle Facilities Plan for Palm Beach County • Review of roads that have the potential for the construction of bicycle routes and

facilities • Recommendations for additional streets in Delray Beach to fill in the county's

proposed five-mile grid

Joy Riddell, Florida Pedestrian Coordinator April 21,2003 Task Team Sub-Committee meeting at Veteran's Park

• PowerPoint presentation of inadequate pedestrian facilities in several cities, and how these facilities were redeveloped

• Q&A period followed regarding pedestrian issues

- 7 -

Observations

Infrastructure During February 2003, members of the Task Force conducted extensive street and sidewalk surveys on specific EastlWest and North/South corridors throughout Delray Beach, Surveys were conducted at different times to observe the extent of auto, pedestrian, and cycling activity during both daytime and evening hours,

Impediments to safe pedestrian and cycling activity that were observed included:

• Sidewalks o Lack of sidewalks on both sides of a street o Landscape encroachments o Broken storm drain grates o Limited or insufficient corner curb cuts o Sidewalk gaps o Alternating sidewalks o Obstructions (utility poles and supporting cables, street lights, traffic control

and FPL boxes, signs) o Vehicles parked on sidewalks o Sand and other debris o Basic damage such as breaks and cracks o New construction deterring access and use

• Crosswalks o Unmarked crosswalks o Stop bars located too close to crosswalks o Difficult-to-reach pedestrian signals o Faded parallel crosswalk lines and stop bars

• Major Intersections o No countdown pedestrian signals o Medians non-existent or narrow for pedestrians o Continuous auto traffic as a result of right turn-on-red

• Parking o Pedestrian right-of-way obstructed by parked vehicles o Insufficient bicycle parking

• Bicycle Lanes o Of 301 linear miles of city streets, Delray Beach has 4.4 miles of designated

bicycle lanes, which are owned and maintained by either Palm Beach County or the State of Florida.

• New Developments o Lack of connectivity between subdivisions o Construction obstructing the use of sidewalks and street lanes o Disregard for planning future easements, sidewalks and bike lanes

• Pathways o Insufficient shared use paths o Insufficient greenways and trails

• Driver Visibility o Signs and landscaping obstructing visibility at corners and driveways

- 8 -

Motorist Behavior The team observed motorist behaviors that affect the safety of pedestrians and cyclists. Those behaviors seen on a regular basis included:

• Drivers exceeding the posted speed limit • Drivers not coming to a full stop at Stop signs • Drivers running red lights • Drivers not yielding to pedestrians and cyclists

Education Palm Beach County offers a school education program to train staff and students in pedestrian and bike safety. We also are aware of three related offerings in Delray Beach:

• City Police Department bike helmet giveaway • Bicycle education programs in schools • Occasional bike safety rodeos

However, there is no citywide information or programs available for residents, seasonal residents, and tourists.

- 9 -

Recommendations

Master Plans The Pedestrian and Bicycle Task Team reviewed various options in developing the Recommended Master Plans. Traffic, usage patterns, property designations, safety considerations, and feasibility were all taken into consideration. The Bicycle/Pedestrian, Greenway, and Bicycle Rack Plans that follow reflect the Task Team's specific recommendations for future adoption by the City of Delray Beach.

Related Recommendations In the process of assessing pedestrian and bicyclist needs throughout the City, the Task Team identified a number of items that can be addressed to make Delray Beach safer and more user-friendly. Twenty-three related recommendations for planning and implementing a citywide program follow in this section.

- 10 -

DELRA Y BEACH Proposed and Existing

Bicycle Routes MAY, 2003

, I l.JICA'/Il

EXISTING BICYCLE LANES:

............ ·P. B . T. T~~. fl'!QEQ.

..............

- 11 -

Ot/EMIlE

GAAFlIJC SCllLE

CITYO"f)fLR.tYBEA~ fl PUJ/HiNG '" ZONlIIG ()£PAATMElir

~,

.. oor~ ILISf.llWAJ/(l .s-.SIBI ··

·P.B. T. T. RECOMMENDED BICYCLE LANES:

'COUNTY RECOMMENDED BICYCLE LANES:

V".

'IIL L ROADS r(ECOMMENDED FOR BICYCLE. U'Nl:S SHOULD

IIAVE PEDESTI?fAN SIDEWAU(S 11n)IlCENT TO TIlE ROADWIl Y.

- 12 -

CW" 0#' Dt'LRAl' BEACi( Ft PUtlllnIIG 'lO/III1GOlPAllfMEIlf

"" ·· CJGlll./.fl/ISf,fIAl'Pllo':i5vsrclol ..

CITY OF DELRAY BEACH, FLORIDA - P.B. T.T. PROPOSED GREENWAYS -

CllYtNIlS , ' ,

/ V

OI;!Ol-IllE

GP..APHiC SCAlE

ClrYOFDoE'LRAI'BEACH, A. PUJ/NINGI. 10lIffIGDtPARJUE1Ir

~,

,· oorJl/.Wf·\lif'P.\'Il 5lSlfU··

- 13 -

+

. , .

"

PROPOSED AND EXISTING BIKE RACKS

• Present

Proposed

- 14 -

.' . ,

• > ,

-

PROPOSED AND EXISTING BIKE RACKS (TRANSPORTATION CONCURRENCY EXCEPTION AREA)

Q PROPOSED

• EXISTING

- 15 -

Related Recommendations

1. Establish a permanent Citizens' Pedestrian, Bicycle, Greenway and Trail Committee.

2. File by the March 31,2004 deadline, the new "Concept Papers" for Ped/Bike

Coordinator funding.

3. Hire a full-time Pedestrian/Bike Coordinator.

4. Develop a city-wide "Share the Road" program.

5. Adopt a Pedestrian, Bicycle, Greenway, and Trail Master Plan based on the

Ped/Bike Task Team recommendations and amend in the future by recommendation

of the permanent committee.

6. Adopt Mr. Richwagen's Present and Proposed Bike Rack Map as presented and

have Mr. Richwagen serve as a voluntary consultant to strategically place bicycle

racks throughout the City of Delray Beach.

7. Establish the following greenways:

a Along the C-15 canal between Congress Avenue and the E-4 canal, and

along the E-4 canal between the C-15 canal and Lake Ida Dog Park.

a Along the FEC railway corridor from the North to South boundaries of the City

of Delray Beach.

8. Consider conducting a charette to review the Pedestrian, Bicycle, Greenway, and

Trail Master Plan for adoption by the community-at-Iarge.

9. Integrate the Parks and Recreation Master Plan with the Pedestrian, Bicycle,

Greenway, and Trail Master Plan.

- 16 -

10. Amend the Comprehensive Plan to include pedestrian, bicycle, greenway, and trail

goals, objectives, and policies as recommended by the Ped/Bike Task Team and

amended in the future by recommendations of the permanent committee.

o Change the Comprehensive Plan, Policy 0-2.1, to recognize designated

(preferred) and undesignated bicycle lanes instead of 14 foot outside travel

lanes.

o Change the implementation date of Goal Area 0-3.10 from fiscal year

2002/2003 to within a year of initial funding of the Pedestrian, Bicycle,

Greenway and Trail Master Plan.

11. Change the Delray Beach Master Plan to provide for sidewalk linkage, bicycle lanes,

and safer street crossings, per Florida Statute 335.066, so that anyone who lives

within two miles of a school or park has a safe path on which to walk or cycle.

12. Apply for federal and state grants that will improve pedestrian and bicycle safety.

13. Ensure the review of pedestrian and bicycle accidents per Policy 0-1.3 and 0-2.3.

14. Direct staff to prepare a plan that will reduce the accident rate at the Atlantic

Avenue/Congress Avenue and Atlantic Avenue/Military Trail intersections, the third

and fifth most accident-prone intersections in Palm Beach County.

15. Ask Palm Beach County to install pedestrian 'count down' signals at all intersections

where there are more than eight lanes of traffic.

16. Direct staff to recommend safe paths to school for the new Atlantic High School at

Congress and Atlantic Avenues, and under the 1-95 overpass at Atlantic Avenue.

17. Continue to consolidate sign age in the public right-ol-way to reduce sidewalk

obstructions.

- 17 -

18. Ensure all sidewalks, crosswalks, and intersections are compliant with the Americans

with Disabilities Act.

19. When developers are required to build a street, require them to build sidewalks and

bicycle lanes when resulting in interconnectivity with similar facilities. If

interconnectivity cannot be achieved at the time of construction, provisions should be

made for the construction of these facilities when appropriate.

20. Ensure vegetation and landscaping are planted and maintained with a minimum of

one-foot horizontal and seven-foot vertical clearance from the sidewalk.

21. Direct City staff to review options for long- and short-term bicycle storage facilities in

all City parking facilities.

22. Encourage the purchase of custom bicycle racks for governmental and public

facilities.

23. Provide for future bicycle parking by adopting an ordinance similar to Boca Raton

Ordinance 4639, which requires new residential and commercial developers to

provide for bicycle parking as a ratio of required motor vehicle parking based on the

type of development.

- 18 -

Appendices

A Pedestrian and Bicycle Task Team Committee Members

B Resolution No. 88-02 of the City Commission of the City of Delray Beach

C Task Team Timelines

D Project Funding Sources

E Federal, State, County, and City Pedestrian/Bicycle Crash and Fatality Statistics

F Pedestrian/Bicycle Reference Material

G Q&A on Sidewalk and Pedestrian Issues

H Data Representing Delray Beach Pedestrian Crashes for the 9-year Period

Ending 12/31/2001

Data Representing Delray Beach Bicycle Crashes for the 9-year Period Ending

12/31/2001

J Pedestrian/Bicycle Crash Data Occurring in Delray Beach During the January -

August 2002 Period in Delray Beach

K Street and Sidewalk Surveys

L Randal Krejcarek Presentation at the January 9, 2003 Pedestrian and Bicycle

Task Team Meeting

M "Bil" Phillips' Presentation at the March 13,2003 Pedestrian and Bicycle Task

Team Meeting

N Approved Minutes of the Pedestrian and Bicycle Task Team Meetings

o Section 402 Grant Funding Application for Bike/Ped Coordinator Position and

City Manager's Response

P Glossary of Terms

Q Florida Laws

R Benefits of Walking and Cycling

S Custom Bicycle Racks

T Boca Raton Ordinance 4639

- 19 -