Completing Our Streets: The Transition to Safe and Inclusive Transportation Networks

About Island Press

Since 1984, the nonprofit Island Press has been stimulating, shaping, and communicating the ideas that are essential for solving environmental problems worldwide. With more than 800 titles in print and some 40 new releases each year, we are the nation’s leading publisher on environmental issues. We identify innovative thinkers and emerging trends in the environmental field. We work with world-renowned experts and authors to develop cross-disciplinary solutions to environmental challenges.

Island Press designs and implements coordinated book publication campaigns in order to communicate our critical messages in print, in person, and online using the latest technologies, programs, and the media. Our goal: to reach targeted audiences—scientists, policymakers, environmental advocates, the media, and concerned citizens—who can and will take action to protect the plants and animals that enrich our world, the ecosystems we need to survive, the water we drink, and the air we breathe.

Island Press gratefully acknowledges the support of its work by the Agua Fund, Inc., The Margaret A. Cargill Foundation, Betsy and Jesse Fink Foundation, The William and Flora Hewlett Foundation, The Kresge Foundation, The Forrest and Frances Lattner Foundation, The Andrew W. Mellon Foundation, The Curtis and Edith Munson Foundation, The Overbrook Foundation, The David and Lucile Packard Foundation, The Summit Foundation, Trust for Architectural Easements, The Winslow Foundation, and other generous donors.

The opinions expressed in this book are those of the author(s) and do not necessarily reflect the views of our donors.

COMPLETING OUR STREETS

The Transition to Safe and Inclusive Transportation Networks

Barbara McCann

Copyright © 2013 Barbara McCann

All rights reserved under International and Pan-American Copyright Conventions. No part of this book may be reproduced in any form or by any means without permission in writing from the publisher: Island Press, 2000 M Street NW, Suite 650, Washington, DC, 20036

Island Press is a trademark of Island Press/The Center for Resource Economics.

Library of Congress Cataloging-in-Publication Data

McCann, Barbara.

Completing our streets : the transition to safe and inclusive transportation networks / by Barbara McCann.

pages cm

Includes bibliographical references and index.

ISBN-13: 978-1-61091-430-7 (cloth : alk. paper)

ISBN-10: 1-61091-430-9 (cloth : alk. paper)

ISBN-13: 978-1-61091-431-4 (pbk. : alk. paper)

ISBN-10: 1-61091-431-7 (pbk. : alk. paper) 1. Urban transportation policy–United States–Citizen participation. 2. Streets–United States–Planning. 3. Traffic safety–United States–Planning. 4. City planning–United States–Citizen participation. I. Title.

HE308.M38 2013

388.4’110973–dc23

Printed on recycled, acid-free paper

Manufactured in the United States of America

10 9 8 7 6 5 4 3 2 1

Keywords: AASHTO green book, accessibility, active living, automobile Level of Service, green streets, ISTEA, MAP-21, Metropolitan Planning Organization (MPO), National Complete Streets Coalition, pedestrian safety, performance measures, Safe Routes to School (SRTS), transportation demand management (TDM), transportation equity, transportation finance, transportation maintenance and operations, transportation planning, transportation reform, transportation safety, walkability

To the memory of Susie Stephens, who planted a seed

Contents

Buford Highway, Atlanta, Georgia. Note the trail leading to the bus stop in the background. (Photo by Steve Davis.)

Preface

ONE DAY IN THE EARLY 1990S, I was riding my bicycle in Atlanta along wide, fast-moving Ponce de Leon Avenue. I was passing by Ponce de Leon Plaza, Atlanta’s very first strip shopping center, sharing one of the six lanes with cars speeding by, inches away. I began to imagine a city with bike lanes everywhere. It turned out to be more than a fleeting thought.

I had been helping organize an annual Bike to Work Day effort that brought out a few stalwarts, but most people reacted to the suggestion that they bike to work with skepticism or disbelief. If you could afford it, driving was the default for almost all trips in Atlanta, even to reach transit. MARTA (Metropolitan Atlanta Rapid Transit Authority) rail stations were surrounded with parking lots and ringed with fences to keep people from walking straight into adjoining neighborhoods—if you were using transit, you must be up to no good. Bicycling was assumed to require a separate path, because the roads were clearly no place for anyone outside of a car. I knew that encouragement alone was not going to get Atlantans to try bicycling. They needed the road network to give them some space.

This was at the time when Atlanta was just starting to understand the downside of its explosive outward growth. Just a few years earlier, the Georgia Department of Transportation had confidently launched a massive highway expansion project to Free the Freeways—and the interstates were again jammed. The region was threatened with losing control of its federal transportation dollars due to its failure to come up with a plan to reduce automobile emissions. I became fascinated by the struggle to change the course of development and transportation investments. Shortly thereafter, the Atlanta region did become the first and only metro area in the nation to lose control of its federal gas tax money because of Clean Air Act violations. The term sprawl was just coming into vogue, and I realized these issues were not isolated to Atlanta. I was working as a writer and producer at CNN, so I did what any journalist would do—I started researching and reporting.

Not long after completing an hour-long special for CNN on transportation and development issues, I took a job at a Washington, DC, nonprofit, the Surface Transportation Policy Project (STPP), which worked to defend and expand innovations in federal transportation funding to allow more spending on motorized modes and public transportation. I wrote widely publicized research reports about how transportation planning decisions affect Americans’ quality of life, from endangering pedestrians to forcing moms to become chauffeurs. And as I talked to reporters, planners, and local leaders, I realized how hard it was for people to envision places where driving was not an everyday necessity, or roadways where bicycles, public transportation, pedestrians, and cars could coexist.

New urbanism and smart growth were starting to present an alternative. The idea of traffic calming to slow cars was gaining ground, and a few places were building bike lanes and light rail. But each project was still a struggle, against attitudes, assumptions, and systems designed to deliver auto-mobility.

People from the public health community visited STPP in 2000, having come to the conclusion I had reached in Atlanta: asking people to get out and walk or bicycle was hopeless until we could start building places that were safe and inviting to walk and bike. They suspected the growing obesity epidemic had something to do with Americans’ ability to move around without actually moving their bodies. With funding from the Robert Wood Johnson Foundation, I worked with transportation researcher Reid Ewing on a study finding that people who live in more sprawling places are more likely to be overweight or obese.¹ The study was the first to use national health and land use data to make a connection between sprawl and health. The companion report received extensive media coverage in 2003, setting up a conversation that has continued since.²

What This Book Does Not Do

The previous summary is the background that led to my creation of the Complete Streets movement, and I tell it in part to explain what this book doesn’t do. It doesn’t dwell on the problems of our automobile-oriented system. I explored those issues earlier in my career, and many others have written articulate, well-researched books and articles on the topic. I encourage you to explore them, and I provide some resources in the bibliography. This book will make only a limited case for why and how compact communities with transportation choices create healthier, more vibrant, and more sustainable communities. The National Complete Streets Coalition has developed (and keeps updated) an extensive list of fact sheets and reports that are chock-full of statistics and information (see appendix B for a guide to these resources). Island Press and many others have also developed extensive resources that do this job.

This book also does not paint a vision of an ideal future or provide a template for the perfect complete street. This book is not the cutting-edge design manifesto that some people may expect. Plenty of others have created beautiful, innovative templates for multimodal streets and compact, walkable towns and neighborhoods. But I’ve found that those finely crafted visions are not of much immediate use in the communities I see as my baseline: Atlanta and the small towns across Georgia and the suburban United States. These places, and so many more across the United States, have been shaped by sprawling development. It will be quite a while before they reach any sort of smart growth ideal—if ever. But the people who live there still need to be able to reach their neighborhood schools safely and walk to and from the bus stop.

If I’m not focusing on the problem, or on the best solution, what on earth will I be talking about? It turns out that many communities are somewhere in the middle—grappling with current conditions as they make their way to creating better, safer streets. This book tells their stories and explores how they have made change happen. It examines what happens after a community has embraced a new vision but when the reality it faces is still a sprawling, automobile-dominated street network with a planning system geared to deliver more of the same. This book is about what such communities do next.

Acknowledgments

THIS BOOK DRAWS on the knowledge of many people about how to complete our streets. I wish I could name the hundreds of advocates, practitioners, elected officials, and others who helped inform the development of the ideas that drive the Complete Streets movement, but for practicality’s sake I will restrict myself to those who gave of their time and insight in developing this book. Many people granted me interviews and patiently answered my follow-up questions; the names of some of them appear in the text, but I want to acknowledge the contributions of the rest. They include the following: Linda Bailey, Mitzi Baker, Jackie Boland, Michael Briggs, Charles Brown, Jack Broz, Dan Burden, Marissa Dolin, Jeff Dunkel, Marshall Elizer, Steve Elkins, James Gittemeier, Andy Hamilton, Cynthia Hoyle, Michael Huber, Nick Jackson, Dan Jatres, Mike Jelen, Deb Kingsland, James Lenker, Todd Litman, Sal Lopez, Jordana Maisel, Raymond McCormick, Leslie Meehan, Chris Morfas, Paul Morris, Michael Moule, Jill Mrotek Glenzinski, Chad Mullins, Randy Neufeld, Phil Pugliese, Karina Ricks, Kate Rube, James Shapard, Karin Tank, Ken Tatsuguchi, Jennifer Toole, Laura Torchio, Linda Tracy, Michael Weber, Bill Wilkinson, Jack Zabrowski, and Paul Zykofsky. I also drew on interviews conducted by Stephanie Potts and Christine Green for a National Complete Streets Coalition project, and I thank Coralette Hannon, Jana Lynott, Rene Ray, and Julia Fine for their support of projects that informed the content of this book.

I give special thanks to Stefanie Seskin, who helped me identify many of the stories told here, reviewed my text, and is responsible for much of the National Complete Streets Coalition’s best work. She and the rest of the staff and steering committee of the Coalition deserve my heartfelt thanks for stepping up and successfully managing the Coalition’s transition to new leadership so I would have the time and space to research and write. I particularly want to thank the following people for their participation in the transition, and for all the work they have done to advance the Complete Streets movement: Debra Alvarez, Geoff Anderson, Rich Bell, Roxanne Blackwell, Tim Blumenthal, David Carlson, Andy Clarke, Jeremy Grandstaff, Art Guzzetti, Michael Huber, Kit Keller, Roger Millar, Jeff Miller, Randy Neufeld, Margo Pedroso, Martha Roskowski, Darren Smith, Ron Thaniel, Catherine Vanderwaart, Tom von Schrader, Rich Weaver, Caron Whitaker, and Stacey Williams. I also want to acknowledge that in focusing on the implementation process, this book leaves out the stories of the advocacy organizations and thousands of volunteers who have been the primary force behind getting complete streets policies adopted in the first place. You know who you are, and I am grateful to you for your dedication to this vision.

The developers of Evernote software have earned my gratitude for helping me keep more than a thousand notes organized, and Roy Peter Clark held my hand virtually with his book Writing Tools. Many people stepped up and helped me find photographs for use in the book, most notably Scott Crawford, Andy Goretti, Dave Lustberg, Anne McMahon, and Martha Roskowski.

Douglas Stewart, Karina Ricks, and Rebecca Bright read the entire manuscript and provided valuable suggestions and support throughout the writing process. I also thank Susan Handy, Roy Kienitz, Debra Alvarez, Elizabeth Schilling, Randy Neufeld, and Stefanie Seskin for their insights on portions of the text. I thank my editor Heather Boyer of Island Press for her steadfast support and for pushing me toward greater clarity on each subsequent draft.

Finally, I want to thank my husband, Bob Bloomfield. Not only did he show great patience with this competitor for my time and attention, but he kept me sane with his insistence that even writers need to get out on bike rides and walks. Most importantly, he sustained me with his unwavering belief in this project and in me.

Portions of this text appeared in different forms in reports issued by the National Complete Streets Coalition and its partners, and in the Urban Design Journal.

A well-maintained four-lane road in the Midwest alongside a school for children with disabilities. (Photo by Barbara McCann.)

Introduction

AS I WAS WORKING ON THIS BOOK, I took a break to make a presentation at a pedestrian safety meeting held at a branch of the Montgomery County Public Library in Germantown, Maryland, just north of Washington, DC. Two girls, children of one of the organizers, were eagerly passing around pedestrian gingerbread cookies, as about fifty people gathered on the cold winter afternoon. But despite the refreshments, attendees found little to celebrate. The meeting had been called soon after two residents, one a high school student, had been killed while walking in what is known as the upcounty, the northern section of Montgomery County where decades of agriculture are giving way to spread-out, automobile-oriented development.

Much of the afternoon was spent discussing design solutions for an unmarked crosswalk on Stringtown Road, a new four-lane road designed to funnel interstate traffic to the new development in Clarksburg. A father begged for a marked crosswalk to help his children and other kids living in new homes reach Clarksburg Elementary School, which backed up to the new road. He brought photographs of women and children crossing at a T-intersection, marked only by curb cuts and a narrow median the county had installed when the road was built. County officials said a signal and a crosswalk must wait years, until completion of the cross street brings more traffic. They fear that simply painting a crosswalk will give the kids a false sense of security. One county official said she had good news for attendees: in the future, the County will stop installing curb cuts that raise expectations prematurely.

As attendees debated potential solutions, I couldn’t help thinking that the issue was one of priorities. The school has been in this location since 1909. Planners should have been aware that children would move into the new homes built within sight of the school. If their safety had been given priority in the planning phase, the County could have left the traffic heading to Interstate 270 on its original route, on Clarksburg Road on the far side of the school. The new road could have been smaller, with fewer cars. If safe access had been prioritized during the design phase, the County could have incorporated a safe crossing while building the road. Now, the traffic-centered priorities that guided earlier decisions have made it much harder to achieve pedestrian safety: the needs of a dozen children are in direct conflict with the needs of hundreds of commuters—commuters who have no choice but to drive.

This story is repeated all across the United States. Go to a multilane road in a suburb in just about any state. One look tells you that people who are not in cars shouldn’t be there. A second look tells you that they are—because they’ve tramped a visible trail in the grass. It probably won’t be long before you spot people waiting by a bus stop or running across the street during a break in traffic. You might even see someone riding a bike, hugging the curb while passing drivers honk.

The Complete Streets movement arose to change the priorities of the transportation system that produced these roads. A broad coalition of bicycle riders, transportation practitioners, public health leaders, older Americans, smart growth advocates, real estate agents, and more came together to insist that we begin to build streets that are safe for everyone. We formed the National Complete Streets Coalition in the early 2000s to push for passage of complete streets policies. The policies—in the form of laws, resolutions, or internal agency directives—commit states, cities, and towns to building all future road projects to safely accommodate everyone using them. The movement took off: since 2005, more than half the states and close to five hundred local jurisdictions have adopted complete streets policies.¹ Many of the communities that have made this commitment are going on to study the long-standing gaps in their transportation network, rework their decision-making processes, write new guidance, and educate transportation professionals and citizens alike in the new approach to making transportation investments. From the state of North Carolina to the city of Chicago and from Edmonds, Washington, to Lee County, Florida, they are beginning to routinely build their roads differently: they integrate carefully engineered sidewalks, safer crossings, bicycle lanes, new types of intersections, traffic calming, and features that speed buses to their destinations.²

The Complete Streets movement has helped bring about a tremendous burst of activity and change in the way roads are planned, funded, designed, and built. But it is far from the first to point out that roads should be safe for everyone traveling along them, or to argue for more transportation choices. Road safety campaigns go back to the dawn of the automobile age; bicycle riders and transit boosters have been pushing for multimodal accommodation since the 1970s. More recently, this movement has been driven by changing American attitudes: a 2012 nationwide public opinion poll found that 63 percent of Americans would like to address traffic congestion by improving public transportation and designing communities for easier walking and bicycling.³ America’s supposed love affair with the car is giving way to a romance with smart phones, which are more easily operated on the bus or streetcar. In the United States and around the world, young people are delaying getting their licenses and are driving less. The growing ranks of older adults want greater access to public transportation. Indeed, demographic trends show a certain inevitability in the desire to transition to less car-dependent lifestyles.⁴ More citizens and their elected officials are using bicycles, public transportation, and their feet to get around, and they are working for change.

The Complete Streets Change Model

These trends are helping fuel the Complete Streets movement. It also continues to spread because it brings something new to the table, but not what many people think. Sure, the catchy name is helpful. But beyond the name, the movement has found three