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Ordinance 1907COUNCIL BILL No. 848 ORDINANCE No. 1907 AN ORDINANCE AMENDING ORDINANCE No. 1679 KNOWN AS THE WOODBURN 2000 COMPREHENSIVE PLAN AND DECLARING AN EMERGENCY. WHEREAS, comprehensive plans are necessary for the betterment of the community and orderly growth for the city, and WHEREAS, State law requires that cities make comprehensive plans to provide for the orderly development of such cities, and WHEREAS, the City Council of the City finds that the "Woodburn 2000 Comprehensive Plan" meets all applicable Land Conservation and Develop- ment Commission goals, now, therefore, THE CITY OF WOODBURN ORDAINS AS FOLLOWSe Section 1, The Woodburn City Council hereby adopts the amendment, to the Woodburn 2000 Comprehensive Plan Volume II Transportation element, which shall be known as the "Bicycle and Pedestrian Plan", as part of the official Comprehensive Plan for the City of Woodburn which is attached hereto as Exhibit "A" and, by this reference, is incorporated herein. Section 2. This ordinance being necessary for the immediate pre- nervation of the public peace, health and safety, an emergency is declared to exist and this ordinance shall take effect immediately upon passage by the Council and approval by the Mayor Approved as to form: ~ -- City Attorney ate ~r. APPROVED ~~i~,l' ~~;'~'`"`= C% `~~~~ ~~_ ~I ~ IAM COSTI ,MAYOR Page 1 - COUNCIL BILL No. 848 ORDINANCE No. 1907 Passed by the Council Submitted to the Mayor Approved by the Mayor Filed in the Office of the Recorder ATTEST: ..~ ,, '~BARNEY 0.~``BURRIS, Recorder City of Woodburn, Oregon January 14, 1985 January 17, 1985 January 17, 1985 January 17, 1985 Page 2 - COUNCIL BILL No. 848 ORDINANCE No. 1907 EXHIBIT "A" INTRODUCTION Footpaths and bicycle routes provide opportunities to complement present modes of transportation by linking communities, schools, parks and places of work while reducing congestion in areas and conflicts between various forms of travel occurring on some streets and highways. The establishment of bicycle and pedestrian routes will create additional commuting and recreation opportunities with- in urban, suburban and rural areas. Currently within the Woodburn area there are approximately 3,000 bicycles registered with the Police Departmentp For a smell com- munity this number is a good indication of interest in bicycle use as an alternative transportation mode. With increasing energy costs and an increasing awareness of physical fitness and recrea- tional opportunities afforded by bicycling, it is anticipated that bicycle use will continue to increase. PURPOSE The purpose of the area wide bicycle and pedestrian plan is to pro- vide planning guidelines and design standards for the organization of a bicycle and pedestrian system to complement the reaional trans- portation network and to provide a safe, legitimate and desireable alter- native system to meet the transportation and recreation needs of the community. GOAL #1 To develop an area wide bicycle and pedestrian plan. Objectives; A. To make implementation of the area wide bicycle and pedestrian plan a cooperative effort between the City of 4~oodburn and all other governmental juris- dictions within the area. B. To develop a comprehensive bicycle and pedestrian system including both on-street and off-street routes, which make pedestrian activity and bicycle riding feasable, safe and enjoyable as alternative modes of transportation in the area. C. To provide bicycle and pedestrian routes that con- nect residential areas with the major commercial ,employ- ment, recreational and institutional network of the area. D. To provide connections between local bicycle and pedestrian routes and other bicycle and pedestrian routes of a regional, state and national nature. E. To finance the bicycle and pedestrian system as much as possible with non-local funds. Where local funds are required, expenditures will be carefully programmed through the respective capital improvement programs of the various governmental jurisdictions associated with the plan. _ ~ _ F. To insure that all new commercial, industrial, insti- tutional, residential and recreational developments consider the elements contained within the bicycle and pedestrian plan. G. To establish the administrative capability necessary to implement the area wide bicycle and pedestrian plan. GOAL #2: Increase safety and improve security for pedestrians, bicyclists and bicycle equipment. Objectives: A. Provide bicycle and pedestrian routes along :arterial and collector streets as these streets are improved, or as programmed into jurisdictional capital improvement plans. B. Establish design standards for all new bicycle and pedes- trian facilities that are consistant with state and federal design standards. C® Establish well-signed bicycle and pedestrian routes through- out the area by installing bike route signs, curb ramps and in some cases safety striping on streets and roads designated by bicycle and pedestrian use in the plan. D. Establish a bicycle and pedestrian safety plan by implement- ing an area wide educational and recreational program oriented toward teaching bicycle and pedestrian safety. E. Amend subdivision and zoning codes to require provision of bicycle and pedestrian facilities. GOAL #3: Increase the acceptability for bicycle and pedestrian use. Objectives• A. Provide bicycle and pedestrian routes within all state, regional and local parks anal recreation areas by apply- ing for grant assistance to support the development of bicycle and pedestrian systems in parks and open space areas. B. Plan off-street routes along creeks and establish routes which lead to local and regional open space areas Estab- lsih local loop routes which take advantage of local ameni- ties and historical areas. C. Construct pedestrian facilities, reststops, exercise loops and bicycle courses in selected areas. D. Encourage existing developments to install and construct bicycle and pedestrian facilities whenever improvements are planned. - 2 - BIKEWAY & PEDESTRIAN SYSTEP1 The physical environment of 4oodburn and the surrounding area, being of extremely flat terrain, provides an ideal setting for bicycle and pedes- trian activities. Bicycle use has become a popular mode of transportation for a wide variety of people in the Woodburn area. The bicycle is being utilized as an inexpensive way to travel to work, school and shopping areas as well as a means of recreation and exercise. Riding a bicycle or walking is efficient, non-polluting, energy conserving and can aid in the reduction of traffic congestion along major arterials and collectors. With- in the Woodburn area a need exists for the development of a comprehensive bicycle and pedestrian system. Exi sti n, System At present, Woodburn has limited bicycle and pedestrian facilities. Though I-5, Hwy. 214 and 99E are considered part of the State Bike- way System, existing facilities along these routes consist of i signed and striped bike lane along Hwy. 214 between Boones Ferry Road and 99E. A signed and striped bike lane exists along the South side of West Hayes Street between Settlemier Avenue and Nellie Muir Elementary School. An unsigned but striped area exists along the Front Street overpass between St. Lukes Cemetary and the Woodburn High School access road. Though these are limited facilities, their existance has a direct influence on the location of future facilities. Locational Criteria In the process of determining locations for bicycle and pedestrian facilities, a variety of criteria were taken into consideration. Potential use, street width and right-of-way, continuity and dir- ectness, safety, accessibility to schools, parks, commercial areas and connections to existing facilities, were of primary consider- ation. Also considered were pavement quality, traffic flow, use conflicts, cost, physical barriers and attractiveness. Bicycle use generally falls into two catagories: utilitarian and recreational. Utilitarian bicyclists usually have a specific destination in mind such as workplace, school, home or store. Recreational bicyclists may be concerned about the aesthetic qualities and exercise potential of a facility rather than specific destination. An attempt was made to incorporate the needs of both types of bicyclists within the bi- cycle route plan. Recommended Bicycle Routes Using the Locational criteria listed above, the following streets have been analyzed as to their potential use as bike routes: Ever- green Road, West Hayes Street, Settlemier Avenue, Boones Ferry Raad., Harrison Street, Fifth Street, Third Street, Lincoln Street, Young Street, Park Avenue, Gatch Street, Front Street, First Streets Garfield Street, Willow Avenue, Woodland Avenue, Cleveland Street and Brown Street. - 3 - At present, the following streets could accommodate bicycles with minor improvements, such as signage, striping, drainage grate alignment and where necessary removal of on-street parking: West Hayes Street, Settlemier Avenue, Evergreen Road, Young Street, Gatch Street, Third Street, Garfield Street, First Street, Willow Avenue, Woodland Avenue and Lincoln Street. Any future capital improvements of these streets should take bicycle facilities into consideration. Streets needing major improvements such as rebuilding, resurfacing, widening, shoulder work or drainage installation are Boones Ferry Road, Front Street (North and South of the downtown area), Fifth Street, the North side of West Hayes between Leisure Street and Nellie Muir School., Cleveland Street and Brown Street. Any capital improvements on these streets should include bicycle facilities. Future expansion of the street system i.e. Country Club Road, (Boones Ferry Road to Front Street), Evergreen Road and Parr Road will provide the opportunity to expand bicycle routes to make connections with new development areas, These roads should incorporate bicycle facilities. In addition to the proposed on street bicycle routes, an off street bicycle and pedestrian trail system along the Mi11 Creek flood plain has been given some consideration in the past. Mill Creek is a very small stream with a flood plain of about 200' in width. A trail system along this stream and a tributary would provide a scenic con- nection to six city parks and a school. Another area for consider- ation as a bike and pedestrian path would be along the Senecal Creek flood plain in West Woodburn. Both of these off street systems would connect into the on street routes to tie together residential areas, schools, parks, commercial and employment centers of the area. Please refer to bikeways map for route specifics. Design Standards Construction of new bikeway facilities route$ should result in a system that i cyclists, This can be accomplished by standards as explained in the American and Transportation Officials "Guide for Facilities". These standards, as well markings and signals established in the Control Devices", have been adopted by portation as well as federal agencies. or improvements on existing s safe and useable by bi- adoption of minimum design Association of State Highway Development of New Bicycle as design standards for signs, "Manual on Uniform Traffic the Oregon Department of Trans- Policy #1 All new .bikeway facilities in the Woodburn area shall be constructed in accordance with design standards as established in American Associ- ation of State Highway and Transportation Officials, "Guide for Develop- ment of New Bicycle Facilities". Policy #2 A11 bikeways shall be signed in accordance with the "Manual on Uniform Traffic Control Devices" to provide guidance to both bicyclist and motorist. -4- BICYCLE SAFETY Available data on bicycle accidents is limited due to the fact that most accidents are minor and are not officially recorded. Only 10 percent of all bicycle accidents involve motor vehicles. However, nearly all bicycle fatalities involve accidents between motor vehicles and bicycles. In- creasing safety and security for bicyclists and reducing bicycle accidents can be achieved by three complementary methods: Improving physical bicycle facilities; implementing an educational program for both bicyclists and motorist and providina consistant enforcement of traffic regulations. Physical Facilities Bicycle facilities can be improved for safety by applying appropriate design standards. Within Woodburn an existing bike lane along the South side of West Hayes Street between Settlemier Avenue anal Nellie Muir Elementary School has been designed to accommodate two way bicycle traffic. This type of design should be discouraaed for all future bi- cycle facilities as it has been found to be a major cause of bicycle - motor vehicle accidents. Because this design causes riders to ride against traffic, it does not comply with Oregon (ORS 483-487) motor vehicle laws that state "...every person riding a bicycle upon a road- way is subject to the duties applicable to the driver of a vehicle by the laws of Oregon ...". Other areas of concern regarding bicycle safety and design of facili- t ies are on-street motor vehicle parking, intersection conflicts and other hazards such as drainage grates, manhole covers and rough pave- ment. On street parking poses problems of cars pulling out into the traffic stream and opening of car doors into the path of bicyclists. Removal of on street parking or an alternative such as phased parking (i.e. no parking during school opening and closing or during daylight hours), along designated bike routes would help eliminate these pro- blems. Safe movement of bicycles through intersections could be accom- plished by appropriate facilities such as signs, markings and signali- zation which serve to warn motorists of the potential for bicycle/auto conflict. Drainage grates and manhole covers should be modified or replaced so as not to cause a hazard to bicyclists. Smooth riding surfaces can be provided through routine resurfacing and sweeping of street and shoulder areas. Policy 3: Routine street maintenance shall include the provision of smooth paved shoulder areas and sidewalks and the replacement or modification of drainage grates and manhole covers so as not to cause a hazard to bi- cyclists and pedestrians. Education Education of the bicyclist, motorist and law enforcement officials can have a direct influence on the reduction of bicycle accidents. The majority of bicyclists are in the age group of 6 - 20 yrs. old. This age group is also the most frequently involved in accidents. Education programs aimed at this age group could be incorporated into local school district curriculums. Recreational bicycle programs can a1 so serve to educate bicyclists about safety and abiding by the rules of the road. - 5 - Enforcement An effective law enforcement policy can play a significant role in bicycle safety and education. Policies that encour- age bicyclists to ride on sidewalks or against traffic as in two-way bike ways may cause riders to assume that traffic laws and regulations don't apply to them. The bicyclist needs to know that he must obey the same traffic regulations as any other user of the roadway. Most violation problems involving bicyclists consist of failure to yield right-of-way, running stop signs and signals, riding without lights at night and riding against traffic. Motorists violations consist primarily of failure to yield right-of-way or an improper turn. Motorists as well as bicyclists need to be made aware of the accident potential of violating rules and regulations. Lack of enforce- ment leads to disregard, therefore, it is important that the local police authority follow a consistant enforcement program. Policy 4: The City shall encourage ongoing educational and recreational programs related to the safe and legal operation of bicycles. IMPLEMENTATION Implementation of the Bicycle and Pedestrian Plan involves changes in existing policies, locating and acquiring funds and providing for review of the plan as transportation issues evolve. Policy Changes An inventory of existing bikeway facilities has revealed certain policies which are not consistant with present safety design stand- ards. Changes in these policies along with additions to current ordinances regarding subdivisions and zoning, will provide for an orderly expansion of the bikeway system. The use of sidewalks as bikepaths and two-way bike lanes on one side of the road should be discouraged in future policy making. Polio 5: Where feasible, designated bike lanes on both sides of the street should be provided through the removal of parking or phased park- ing to permit bicycles to travel on roadways end in the same dir- ection as motor vehicles as required by Oregon Law. Code Revisions Currently Woodburn subdivision and zoning codes contain no pro- vision for bicycle facilities. P1any elements of the street system are included in a subdivision plan by the developer. The sub- sequent costs of these facilities is eventually paid for by the consumer of lots and homes in these subdivisions. Without this system, taxpayers from throughout the community would be faced with a much greater tax burden to support growth. This is the situation with bicycle far,i1ity construction in the development of new areas, where nearly all funding for projects comes from tax sources from the general public. - 6 - Currently zoning ordinances of the City of Woodburn make no provision for parking of bicycles. Secure, safe and convenient bicycle parking will become a necessity as bicycle use increases. Policy 6: An amendment to the subdivision ordinance should require as part of the street improvement plan that bicycle facilities be included where the subdivision encompasses or abuts an arterial or collector street. Policy 7: The zoning ordinance should be amended to require bicycle parking facili- ties and spaces at all schools, parks, commercial centers and public use facilities. Funding Sources: Funding for bicycle programs can come from federal, state and local sources. Each of these sources alone will not provide all the neces- sary funds, but taken together, they can enable the Woodburn area to provide a bikeway system as well as safety and educational programs. Federal funds through the Federal Highway Act of 1976 can be used for the construction of bicycle and pedestrian facilities in conjunction with hgihway projects, and within limits, for the construction of independent bikeway facilities, Other federal sources of funds are available through the Federal Land and Water Conservation Fund, Com- munity Development Block Grants (Department of Housing and Urban Dev- elopment), US Army Corps of Engineers, Recreation Facility Loans (Dept. of Agriculture), National Highway Traffic Safety Administration, Dept® of Health, Education and Welfare under the Elementary and Secondary Education Act of 1965, Department of Energy and Revenue Sharing funds by the United States Treasury Dept. In 1971 the Oregon Legislative Assembly enacted House Bi11 1700® This bill required that 1% of all monies received from State Highway funds be used for establishing bikeways and footpaths along streets, roads and highways as well as in parks and recreational areas. In May of 1980 an amendment was passed by the voters of Oregon which restricts the use of all hgihway funds to highway purposes. The bicycle fund can no longer be spent on bikeways and paths in parks or anywhere outside of highway, road or street right-of-way. Local governments are allowed the accumu- lation of these 1% bicycle funds over a period of ten years. The monies could be used to match Federal Funds. Local funds can come from a number of sources. The General Fund of a community is very flexible and is subject to community preferences. Policy makers can be influenced by strong support of bikeways® Parks and Recreation agencies may provide funds for facilities that are in conjunction with other phases of park development. Community colleges and schools can fund and construct bikeway facilities through campus improvement programs. Cities, counties and states can also sell and issue general fund bonds for construction of bikeways. Right-of-way donations by landowners for the purpose of bikeway accommodation,. are entitled to Federal and State tax deductions. -7- Another possible source of funds would be through the implement- ation of a bicycle registration program. This would provide funds for facilities and programs as well as reduce bicycle thefts. Policy 8: When monies become available through the various sources, the City and other involved jurisdictions shall take actions to acquire these funds for continual improvement and development of bikeway and pedes- trian facilities. Plan Monitoring A review of the plan should be conducted on an annual basis or as needed to assess new projects, changing community attitudes, exist- ing facilities, related transportation issues, locational problems and availability of monies. Bikeway projects should be included in street Capital Improvement Programs regardless of funding source. 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"Cf N ~ ~~ ,O ~ ~ ' ~ ~ S2~ S2~ "O < ~ "'$ ~ N N ~ O d ~. ~. ~ < o n ro ~ ~ ~ ~ C'F' V. V. C O O" C") ~ J ~ J J . . ~ ~ . . . ~ ~' _ ~ ~ ~' .J ~ O C H ~ fD fD ~ fs ~ ~ '.O CD O 'S ~ ~ O (D ci- c+ < .n c-f --h ~ ~ O ~ N ~ J ct . 0 .~ Q ~ ! "~ (' O O r r m ~ ~-+ ~ Z L7 D ~-'~ H C m y m Z '--~ n m ."'~ BIKEWAY & PEDESTRIAN PLAN IMPLEMENTATION COSTS TOTAL FUNDS AVAILABLE: $ 15,253.00 Administrative Costs .......................... $ 1,500.00 Signage (including sign, post and labor) ...... $ 4,362.00 Striping and Pavement Markings ...,.........__.. $ 300.00 Construction of 6 x 200' bikepath connecting Hwy. 214 and 5th Street .............. $ 2,000.00 Curb Ramp Construction 10 @ $450.00 each ...... $ 4,500.00 Bike Racks (two) .............................. $ 400.00 TOTAL: $ X3,062.00 Funds left over can be credited to a financial reserve to be held for not more than 10 years. BICYCLE & PEDESTRIAN PLAN DEFINITIONS BICYCLE - A vehicle having two tandem wheels, propelled solely by human power, upon which any person or persons may ride. BICYCLE FACILITIES - A general term denoting improvements and pro- visions made by public and private agencies to accommodate or en- courage bicycling, including parking facilities, maps, all bikeways, and shared roadways not specifically designated for bicycle use. BICYCLE LANE (BIKE LANE) - A portion of a roadway which has been designated by striping, signing and pavement markings for the pre- ferential or exclusive use of bicycles. BICYCLE PATH (BIKE PATH) - A bikeway physically separated from motorized vehicular traffic by an open space or barrier and either within the highway right-of-way or within an independent right-of-way. BICYCLE ROUTE (BIKE ROUTE) - A segment of a system of bikeways design- ated by the jurisdiction having authority with appropriate directional and informational markers, with or without a specific bicycle route number. BIKEWAY - Any road, path, or way which in some manner is specifically designated as being open to bicycle travel, regardless of whether such facilities are designated for the exclusive use of bicycles or are to be shared with other transportation modes. HIGHWAY - A general term denoting a public way of purposes of vehicular travel, including the entire area within the right-of-way. RIGHT-OF-WAY - A general term denoting land, property, or interest there- in, usually in a strip, acquired for or devoted to transportation purposes. RIGHT OF WAY - The right of one vehicle or pedestrian to proceed in a law- ful manner in preference to another vehicle or pedestrian. ROADWAY - The portion of the highway, including shoulders, for vehicle use. SNARED ROADWAY - Any roadway upon which a bicycle lane is not designated and which may be legally used by bicycles regardless of whether such facility is specifically designated as a bikeway. SIDEWALK - The portion of a highway, street or roadway designed for pre- ferential or exclusive use by pedestrians. PEDESTRIAN FACILITIES - A general term denoting improvements and provisions made by public or private agencies to accommodate pedestrians, including sidewalks, curbramps, signage, pavement markings, footpaths, benches and water fountains.