Section 7: Safer City Initiatives and Support

The League of American Bicyclists uses five E’s to outline ways to improve safety and effectiveness in bicycling. This Plan will also use this format, but instead of presenting a section on “encouragement,” it will have one of its E’s be the pedestrian “environment” – a section in which it will discuss other impacts which influence the public’s use of pedestrian infrastructure.

Also like the League of American Bicyclists, this Plan includes a sixth E – “equality” – a reminder of the prism through which pedestrian improvements must be considered. The six E’s to be discussed in this section are as follows:

Engineering

Education

Enforcement

Environment

Evaluation

Equality

Engineering

Sections 4, 5, and 6 of this Plan have focused almost exclusively on the physical construction and re-construction of the City’s pedestrian infrastructure. Each of the projects heretofore identified has been classified as 1) a connecting network sidewalk (CNS), 2) a neighborhood access sidewalk (NAS), 3) a crosswalk, or 4) a greenway connector or trail. This identification is the first step in a process to improve pedestrian infrastructure. Each project will require engineering planning to identify explicit implementation requirements and detailed costs. A basis for estimated costs is presented in Appendix I. This cost estimate was provided by the Morgantown City Engineer, who projects that the average cost per linear foot of a 4’ wide sidewalk would be $100 in Morgantown.

Education

Improved pedestrian infrastructure is essential for the City, but this alone will not make Morgantown an effective walking city. One of the additional components that will be needed is pedestrian and driver education. This Plan recommends the development of programs and activities by the Board and strategic partners (e.g., K-12 schools and the University) to encourage more use of walking as a means of travel and exercise and to support greater safety for the walking public.

Attached in Appendix G is a summary of pedestrian-vehicle accidents that occurred in Morgantown from 1998-2008. Pedestrians are particularly vulnerable during winter months, especially in the early evening hours as the end of daylight savings time approaches and immediately after daylight savings time ends (October/November). Darker times for walking make pedestrians harder to see by drivers. Pedestrians’ walking habits of the summer months are also no longer applicable at the same times of day or evening in winter months, and so this is a vulnerable time of transition. Walking across a street may seem to be a simple undertaking, but most pedestrian accidents occur when pedestrians are crossing streets. In Morgantown such crossings can be a difficult challenge for people of all ages and abilities. The Pedestrian Safety Board believes that the number and severity of those accidents can be reduced even with a growing percentage in the number of people walking through effective pedestrian and driver education.

The principles of a pedestrian safety program are summarized by the City of Maple Ridge, CA, in the following safety tips for pedestrians and drivers. These principles and the dissemination of pedestrian-related City Codes (see Appendices N and O) will be part of a pedestrian safety awareness promotion to be developed by the Pedestrian Safety Board for adults.

Safety tips for pedestrians:

Make eye contact with drivers before crossing the street to ensure that you are seen.
Use designated crossing points and obey pedestrian signs.
Wear bright colored clothing or carry reflective articles, especially when walking at night.
Always be cautious and pay attention to traffic, as drivers may sometimes disobey traffic signals and not stop.
Look left, right and left again before stepping of the curb.

Safety tips for drivers:

Always yield to pedestrians.
Be aware of pedestrians who appear indecisive or inattentive.
Be alert to vehicles stopped in the lane next to yours. They may be yielding to pedestrians.
Be aware of pedestrians still attempting to cross the street on a flashing orange pedestrian signal.
Always be alert for pedestrians, especially at intersections.

For children and dependent persons, there are other priority messages for parents and caregivers (from “Safe Kids Canada”):

Children under nine should be accompanied by adults or older children when crossing the street.
Teach your children the rules of the road – start when they are young. By the time your child is nine the rule of the road will be second nature.
Teach your children through play. Play act with toy cars; talk about safety as you walk.
Follow the same rules that you want your child to follow. Be a good role model.
Teach children how to cross the street safely. Teach them to look, left, right, and then left again and to listen for traffic before stepping out into the street. They should look the driver in the eye before crossing.
Children need to be extra alert when crossing at a corner without signals.
Teach your child to stop at driveways, alleys and areas without curbs and to never run out into the street.
Teach children to recognize pedestrian crossing signals but not to rely on them. Before crossing the children should make sure the traffic has stopped and make eye contact with the drivers Remind them to continue across if the light changes to “Don’t Walk” while they are in the crosswalk.
Teach children to respect the role of a crossing guard and to understand his/her signals.
Teach children that whenever possible they should walk on a sidewalk. In areas without sidewalks, they should walk as far away from the road as possible.
Teach children to walk facing traffic (when there is no choice but to walk on the road).
Teach children about the dangers of crossing a street between parked cars or when not at a corner. Children should only cross at corners and pedestrian crosswalks, not diagonally or between parked cars.
Teach children that playing games at railway crossings or around trains can be deadly. Teach children that the only way to cross railway tracks is to use designated railway crossings.

One type of neighborhood traffic safety program which has applicability for Morgantown neighborhoods is a traffic safety campaign in which neighbors in a specific area or on a specific block agree to post lawn signs calling for motorists to slow down. The signs heighten both the need for safety awareness and create an educational tool for motorists and neighbors. Maple Ridge, CA, a community which has utilized such campaigns, has found that a campaign works best when signs are placed on every second property within a block for a period of one to two weeks. An impact is created by the large number of signs as well as the concentrated time period for the campaign. The signs can then be moved to other locations within the community as determined by decision-making of individual neighborhood associations.

An important form of education has been the Speed Watch Program employed by the Morgantown Police Department. The program uses portable radar devices and electronic signs which provide instant feedback to drivers and other riders in vehicles. Drivers can tell whether they are driving too fast for a speed zone. This program has been successfully utilized throughout the City and has continuing educational as well as enforcement value.

Another form of neighborhood safety campaign is the “Heed the Speed” program which is a combination of education and enforcement Initiatives. The traffic safety educational program is initiated along with a short intensive police enforcement campaign. It starts out with warnings followed by citations with little tolerance. The education process is centered within a neighborhood. Yard signs, speed trailers, high police visibility – all pare part of the campaign. The program is repeated at intervals whenever speeds increase. Machine measurement helps record status of campaign effectiveness. (How to Develop a Pedestrian Safety Action Plan, pp 71-72, Office of Safety, FHA, 2006)

Enforcement

According to the Pedestrian and Bicycle Information Center, states need to provide better pedestrian safety training for police officers and state police academies. It is reported that many officers have not received training in pedestrian and bicycling issues and therefore have not been prepared to enforce pedestrian laws or to educate the public. Pedestrian and bicycling education material is available from the Federal Highways Administration. The State of Wisconsin DOT and the City of Madison have generated a DVD to assist with officer and community training.

There are several ordinances in the City Code of Morgantown which pertain to pedestrians (Part 3, Chapter 9, Article 371; see Appendix N), parking on sidewalks and crosswalks (Part 3, Chapter 7, Article 361; see Appendix O), and sidewalk construction and maintenance (Part 9, Chapter 1, Article 913; see Appendix H). The articles of the Code are presented on the following page. Please see the appendices of this Plan for full details.

ARTICLE 361: Parking Generally

361.01 Prohibition against parking on streets or highways.

361.02 Police may remove illegally stopped vehicles.

361.03 Prohibited stopping, standing or parking places.

361.99 Penalty.

ARTICLE 371 :Pedestrians

371.01 Compliance with traffic regulations.

371.02 Right of way in crosswalk.

371.03 Crossing roadway outside crosswalk.

371.04 Drivers to exercise due care.

371.05 Moving upon right half of crosswalk.

371.06 Walking along streets and highways; soliciting rides.

371.07 Persons working on streets and highways.

371.08 Protection of blind pedestrians.

371.09 Electric personal assistive mobility device.

371.10 Solicitation of persons traveling in vehicles on public rights of way prohibited.

371.99 Penalty.

ARTICLE 913: Sidewalks

913.01 Definitions.

913.02 Width of sidewalks.

913.03 Duties of owners and occupants.

913.04 Grading and paving.

913.05 Placing sidewalk pavement above or below curb elevation.

913.06 Sidewalk construction specifications.

913.07 Permit to lay sidewalk pavement.

913.08 Order to owner to grade and pave.

913.09 Work to be done by City; assessment of costs; lien.

913.10 Repairing and repaving.

913.11 Maintenance; removal of snow, ice and dirt.

913.12 Condemnation of sidewalk pavement; order to relay; work by City.

913.13 Repair or repaving when pavement broken.

913.14 Supervision and inspection of pavement construction; power to stop improper work.

913.15 Rooms or spaces under sidewalks.

913.16 Sidewalks required when building constructed or street paved.

913.99 Penalty.

OTHERS

313.04 Pedestrian control signals

373.08 Bicycle riding on sidewalks

349.14 Driving over sidewalks

905.02 Merchandise; displaying on sidewalks

373.08 (d) Skateboard prohibited on sidewalks

343.06 Driving onto roadway from place other than roadway; stopping at sidewalk

1369.07 (J) Conditions for permitted signs: Sandwich board sign

Some of the issues which have been reported as troubling to pedestrians during the past year are:

1) Riding of bicycles on sidewalks in the downtown area;
2) Stopped vehicles in crosswalks;
3) Parking of trucks on sidewalks for loading and unloading;
4) Driving of large truck vehicles over curbs and sidewalks;
5) Blocking sidewalks with trash cans;
6) Lack of snow removal from sidewalks in a timely manner;
7) Dirty sidewalks (garbage, broken glass, gum, etc.).

The active, efficient, and consistent enforcement of City Code regulations is critical to the implementation of this Plan. If insufficient police personnel are allocated to enforcement, however, the use of traffic calming (discussed later in this section of the Plan) to control traffic speed throughout the City will be an important step toward providing protection for residents.

Environment

There are many problems that need to be addressed in considering a walker’s environment and yet there are many assets in the Morgantown walking environment. The needs for a connective network of routes and more consistent standards for sidewalk design have already been discussed in earlier sections.

Overall it would have to be said that the most serious compromises to a safe walking environment are: a) sidewalk designs which provide little or no barrier between pedestrians and heavy and/or fast moving vehicles; b) noxious emissions from truck engines and other exhausts; and c) loud noise from trucks and other heavy vehicles beginning before daylight and continuing late into the afternoon. Each of the three conditions seriously compromises the walkability, the livability and the desirability of the City and the sense of safety which is important to pedestrians. It is important that City policy makers find ways that these issues can be mitigated.

There are however, many opportunities (details following) in the Morgantown walking environment which need to be recognized and strengthened.

Opportunity: Trail Development

During the past 20 years Morgantown has taken important steps toward the development of rail-trails and other free standing trails throughout the community. The trails are considered by many to be one of the most significant community improvements that have been made in the City in the past several decades. At first the rail trails in particular were used for recreation but more recently pedestrians have used the trail system more and more for travel to classes, work and other daily activities – particularly during the day-light saving time period. The use of trails can be expanded into additional areas of the City as this Plan indicates.

Opportunity: Public Transit

With the assistance of West Virginia University, the City-County transit service for the Greater Morgantown area known as “Mountain Line” has become an important asset to walkability in Morgantown (see Appendix J for route map). Transit buses make it possible for a walking life style to be adopted. Transit provides a means for travel to more distant destinations whereas walking helps a person gain access to destinations which are a short distance away. Transit is an all-seasons and all-weather method of travel by pedestrians. Walking is required to gain access to buses and bus routes, and therefore the two forms of mobility are interdependent.

In the development of the connective network sidewalk routes within the City, special consideration was given to where transit routes have already been established. It is important to both the pedestrian and the transit system that pedestrians be able to walk to transit stops or bus stop shelters. Therefore, priority has been given to projects which are located near transit services routes.

It is anticipated that improved safe pedestrian movement will increase transit ridership and may assist the transit system in gaining the resources necessary to increase bus frequency within the service.

Opportunity: Taxis and Zip Cars

At present the residents and students living in Morgantown are under-served by existing taxi service. Additional taxi service capacity could be a boon to the walking public because it too is an important inter-modal connective resource. Additional taxi service, with affordable fares, is a need which should be addressed.

In some U.S. cities, “zip” cars and pick-up trucks can be rented and dropped off at curbside locations by swiping a credit card and a driver’s license. As students continue to bring fewer cars with them to the university, Morgantown can become a potential market for zip vehicle services.

Opportunity: “Complete the Streets” Policy for Road and Street Improvement

In December 2008 the City of Morgantown adopted a “Complete the Streets” Policy which will be used in the future upgrading of streets. A “Complete the Street” policy is a commitment to building or upgrading streets to be “Complete Streets” which address the needs of transit users, bicyclists, and pedestrians as well as automobile operators in ways that fit the context of the community and appropriate safety standards.

A “Complete the Streets” policy is a commitment to include pedestrians in street planning, design development and maintenance located within or adjacent to the City. It is a policy which is an important element in planning and working toward Morgantown becoming a more walkable community. A copy of the Morgantown “Complete the Streets” Resolution is attached as appendices in this Plan. The policy was also adopted by the Greater Morgantown Metropolitan Planning Organization (MPO) in March 2008.

Opportunity: Traffic Commission’s Traffic Calming Program

The Committee on Traffic Calming of the Morgantown Traffic Commission has prepared a traffic city-wide calming plan in order to reduce the speed of traffic in residential areas (see Appendix M). In order for streets to serve their multiple function of offering opportunities for multi-modal travel, proving opportunities for social interaction and commercial exchange, automotive travel speed must be curtailed. Traffic calming barriers help change a driver’s perception of a street and help change the speed of travel.

For this reason traffic calming is an integral element in fostering safer travel by pedestrians in residential areas. With reduced traffic speed, persons are encouraged to walk more frequently for short trips around a neighborhood and even to and from commercial areas. Traffic calming increases the likelihood that people walking in a neighborhood will interact with other residents and results in less air pollution and vehicle noise. All such benefits have the impact of increasing the livability of a community.

Opportunity: Tree Board Tree Planting Initiatives

The Municipal Tree Board works to expand the availability and replacement of street trees throughout the pedestrian corridors and parks of the City. In September 2008 the United States Conference of Mayors reported cities of all sizes throughout the country reporting attention being given to protecting and renewing urban tree canopy. The re-treeing of Morgantown needs to be part of the City’s effort to establish a more walkable community and to generate greater public support for quality of life.

Dan Burden, transportation planner and urban designer, provided the following list of “22 Benefits of Urban Street Trees” in a May 2006 article. Most of these are directly or indirectly related to pedestrian use and safety:

Reduced and more appropriate urban traffic speeds. A Texas A&M study noted drivers slowing down in a treed-scape between 3 mph and 15 mph.
Create Safer Walking Environments by forming and framing visual walls and providing distinct edges to sidewalks. Trees give a sense that a tree can stop or defect a motorist from hitting pedestrians.
Trees call for planting strips which further separate motorists from pedestrians.
Increased security. Trees create more pleasant walking areas, bring about increased walking, more pride in place, etc. which in turn fosters more surveillance of homes, blocks, businesses, etc.
Improved business. Businesses located on treescaped streets show 20% higher income – often an essential competitive edge for competing with malls, plazas, etc.
Less drainage infrastructure. Trees absorb the first 30 % of most precipitation and allow evaporation back into the atmosphere. Another 30% is absorbed into the ground.
Rain, sun, heat and skin protection. For light and moderate rains, pedestrians need less rain protection. In cities with trees there is less need for chemical skin blocking agents. Temperature differentials of 5-15degress are felt by walking under a canopied street.
Reduced harm from tailpipe emissions. Impacts are reduced significantly from proximity to trees. This is especially important for Morgantown which has reach non-attainment levels of air pollution.
Gas transformation efficiency. Trees in street proximity absorb 9 times more pollutants than distant trees, converting harmful gases back into oxygen and other useful gases.
Lower urban air temperatures. Asphalt and concrete streets and lots are known to increase urban temperatures 3-7 degrees. Street trees can reduce household energy bills by 15-35%.
Lower Ozone. Increases in urban street temperatures increase the creation of harmful ozone and other noxious gases impacting the health of people, animals and surrounding agricultural lands.
Convert streets, parking lots and walls into more aesthetically pleasing environments. Trees soften the sense of grayness created by wide streets, parking lots, and sometimes necessary blank walls.
Soften and screen necessary street features such as utility poles, light poles and other needed street furniture
Reduced blood pressure, improved overall emotional and psychological health. People are impacted by the ugly or attractive environments where they spend time. A University of Washington researcher notes that trees have a calming and healing effect on ADHD adults and teens.
Time in travel perception. Research and observation confirm that treeless environment is perceived to be longer than one that is treed.
Reduced road rage. Burton states that there is strong compelling research that motorist road rage is less in green urban versus stark suburban areas.
Improved operations potential. Properly positioned, the backdrop of shade trees allows features which should be dominant to be better seen. The absence of a well developed greenscape allows a mass of grey to dominate the visual world. At the same time, poorly placed signs, signals or poorly maintained trees reduce this positive gain.
Added value to adjacent homes, businesses and tax base. Realtor based estimates of street tree versus non street tree comparable streets relate a $15-25,000 increase in home or business value.
Provide a lawn for a splash and spray zone, storage of snow, driveway elevation transition and more. Tree laws are an essential part of the operations side of a street.
Filtering and screening agent. Softens and screens utility poles, on street and off-street parking and other features creating visual pollution to the street.
Longer pavement life. Studies conducted in a variety of California environments show that shade from street trees can add 40-60% more life to costly asphalt.
Connection to nature and the human senses. Urban street trees provide a canopy, root structure and a setting for interesting natural elements existing in urban life. Urban designs are rarely ever provided for any urban product without trees being included

Evaluation

The Pedestrian Safety Board will advocate for the continual evaluation, refinement, and adaptation to changing pedestrian needs in the City. Some of the changes that will be made will come as a result of direct requests by the City Council or the City administration to address specific issues. Other changes will come as a result of the Board’s implementation of walking promotion and safer city programs. Still other changes will come as a result of program evaluation as the Board monitors and documents what it is able to accomplish: 1) by various projects or services, 2) utilizing what types of strategies, 3) with what target audience, 4) in what kind of time frame.

The forms of evaluation which are most likely to be undertaken are process evaluation (e.g., what we have learned and how that should change what is being done). It is anticipated that there will also be some opportunities to assess impact (e.g., the results of a specific project or program).

The work of the Board will be influenced by evaluation data and community input as it works to promote a complete public mobility system in which walking is a fully-considered and valued component. If it is effective in doing so, the quality of life and the economic prosperity of Morgantown will improve as a location for social and cultural interaction, business activity, and community life.

Equality

Equality is a prism through which pedestrian safety must be viewed and supported. In a democracy, universal participation in the benefits of a community is a paramount concern – be it for individual freedoms, education, public safety, health care, or other common concerns. In the case of restoring a more walkable community, serving the transportation interests of non-motorists creates more equal access and benefits all persons in a community by increasing property values and quality of life.

The vast majority of state and municipal funding spent on transportation infrastructure is directed to investment in roadways for construction, maintenance, signs and signalization, enforcement, public safety, etc. According to information summarized in the Complete the Streets resolution (see Appendix D), approximately 1/3 of the national population does not drive motorized vehicles and has greater dependence on pedestrian facilities. In fact, most persons can be classified as pedestrians in some part of each day.

In Morgantown in the year 2000 16% of the population was identified as not using motor vehicles to travel to and from employment, classes or other destinations. Yet a proportionate share of state and municipal resources has not been invested in pedestrian infrastructure, resources and services for approximately the past 60 years. In order for the total public to achieve greater equality in benefiting from transportation resources, we must create a change in public policy.

All individuals, including pedestrians, bicycle riders and transit riders, must be considered to be legitimate transportation infrastructure users and not just the motorists. Streets must become “complete” in order for all citizens to receive a fair share of public resources to enable safe, accessible, connected travel to destinations within and around the community. A more equitable resource distribution is needed to address the transportation infrastructure safety needs for a safer city for all citizens.