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IDOT Highway Planning and Programming Guidance ~ 1~::m~~,::~:~tOfTras~~:~tion ~ Fax: 515-239-1120 May 28,1999 Ref. No. 763 MEMORANDUM TO CITIZENS OF IOWA FROM: Dennis 1. Tice, Director'::s)(J\ Planning and Programming Division SUBJECT: Highway Planning and Programming Guidance . The Iowa Transportation Commission adopted highway planning and programming guidance on May I I. This guidance will be the basis for decision making relative to Iowa primary highway system improvements and investments and is intended to implement investment directions of Iowa in Motion. This guidance only applies to the primary road system and will be used in the development of highway projects coming into the 2000-2004 Iowa Transportation Improvement Program. The guidance provides policy direction relative to super-2 highways, narrow roadways, bicycle and pedestrian accommodations, transit accommodations, Commercial and Industrial Network raiI/highway grade separations, and bypasses. The guidance approved by the Transportation Commission is very similar to the draft guidance sent out for public review in January. Based on the public comments we received, sections of the guidance were clarified and minor modifications were made. A copy of the approved highway planning and programming guidance is attached. If you have any questions regarding the guidance, you may call 515-239-1669. DLT:DGW:SPA:reI Attachment Narrow Roadway Guidance During the Iowa in Motion process the department received many comments concerning Iowa's transportation system. One of the concerns of many Iowans was that of narrow roadways on the state highway system. In response to these concerns the department has developed the following guidance to improve these routes. These improvements will promote safety and rural mobility. For purposes of this guidance, narrow roadways are defined as those roads with pavements 20 feet or less or roadways with a combination of pavement width and shoulder width less than 30 feet. Roadways meeting these requirements will be evaluated and prioritized for improvements. Evaluation Criteria The Maintenance Division will use the following criteria and weights to determine the priority of narrow roadway improvements. . Safety (30 percent) . Accident rate compared to state average . School bus trips or transit vehicle traffic . Roadway Geometries (50 percent) . Shoulder width . Pavement width . Curvature . Traffic Volumes (20 percent) . Average daily traffic (ADT) . Average daily truck traffic Bridges Bridges located on sections of primary narrow roadways will be evaluated on a case by case basis to determine the need for improvement. Some of the factors to be considered in the determination of structure improvements include structure width, structure condition, and accident history. Funding Funding for this program will be up to 4% of annual DOT Highway Improvement Program construction expenditures. Any narrow roadway improvement, including reconstruction, will be eligible under this program. If the improvement is on a route eligible for transfer of jurisdiction, efforts will be made to reach an agreement with the local jurisdiction to transfer the route. Bicycle and Pedestrian Accommodation Guidance Iowa's roadways serve several modes of transportation including trucks, automobiles, buses, motorcycles, bicycles, and pedestrians. Bicyclists carry the same rights and responsibilities as motor vehicle drivers and are currently legal on virtually all public roadways in Iowa. It is federal transportation policy to "promote increased use of bicycling, and encourage planners and engineers to accommodate bicycle and pedestrian needs in designing transportation facilities for urban and suburban areas." The Iowa Department of Transportation will consider the needs of all transportation users and also encourage metropolitan and regional planning agencies to plan for bicycle and pedestrian accommodations in their areas. Bicycle Accommodation Guidance The department's policy is to provide safe, convenient and adequate bicycle facilities along the state highway system. As part of the development of every highway construction project, the department will consider the following situations to determine whether further bicycle accommodation is needed within the highway corridor. . When highways in and around rural communities are the primary means of bicycle transportation due to the limited availability of other facilities. . When the highway provides primary access to a park, recreational area or other significant destination. . When the highway provides unique access across a natural or man-made barrier, Le., bridges over rivers or railroads or over/under access-controlled facilities and roadways. . The highway provides a connection in an otherwise continuous bicycle faCility. . When the highway project negatively affects the recreational or transportation utility of an independent bikeway or trail. Highway projects will negatively affect at-grade paths and trails when they are severed, when the projected roadway traffic volumes increase to a level that prohibits safe crossings at-grade, or when the widening of the roadway prohibits sufficient time for safe crossings. The department will also provide further bicycle accommodation within the highway corridor if a Regional Planning Affiliation (RPA) or Metropolitan Planning Organization (MPO) can provide a forecast of the bicycle traffic five years after project completion that shows the volume of two-way bicycle traffic averages at least 25 bicycles per day during the peak three months of the bicycling season and motor vehicle traffic on the highway or street exceeds 1,000 vehicles per day. The forecast of bicycle and motor vehicle traffic will be reviewed and approved by the department. In addition to the forecast, the RPA or MPO will show through an analysis of alternatives, that the best alternative is accommodation within the state highway corridor. The department will provide a methodology to the RPAs and MPOs to follow when developing the travel forecasts and when evaluating alternatives. Design Guidance The department will utilize the AASHTO Guide for the Development of Bicycle Facilities as the basis for design guidance. Further guidance is provided in FHWA's Selecting Roadway Design Treatments to Accommodate Bicycles. The location of the bicycle accommodation may be on the highway (e.g. bike lanes, paved shoulders, etc.) or off the highway as a separated bicycle path. In most cases, the preferred location of bicycle accommodation is on the highway. The AASHTO Guide for the Development of Bicycle Facilities lists several reasons bicycle accommodations are preferred on the highway: . At intersections, motorists entering or crossing the highway often will not notice bicyclists on separated bicycle paths approaching from their right, as they are not expecting contra-flow vehicles. Motorists turning to exit the highway may likewise fail to notice the bicyclist. Even bicycles coming from the left often go unnoticed, especially when sight distances are limited. . Signs posted for roadway users are backwards from contra-flow bike traffic on separated bicycle paths, and therefore these cyclists are unable to read the information without stopping and turning around. . Many bicyclists will use the highway instead of the separated bicycle path because they have found the highway to be more convenient, better maintained, or feel safer riding on the road. . Although the separated bicycle path should be given the same priority through intersections as the parallel highway, motorists falsely expect bicyclists to stop or yield at all cross-streets and driveways. Efforts to require or encourage bicyclists to yield or stop at each cross-street and driveway are inappropriate and frequently ignored by bicyclists. . Stopped cross-street motor vehicle traffic or vehicles exiting side streets or driveways may block the separated bicycle path crossing. In some cases a separated bicycle path may be appropriate due to factors such as traffic volume, type of motor vehicles, traffic speed, and skill level of users. Types of Bicycle ImprovementslDesign Treatments There are several ways in which roadways can be constructed to enhance bicycle transportation. Adding or improving shoulders can often be a feasible way to accommodate bicycles in rural areas. Bicycle lanes and wide curb lanes are the primary improvements for urban areas, where available road space is a concern. The fOllowing design treatments are extensively explained in the AASHTO Guide for the Development of Bicycle Facilities. . Shoulders: A paved portion of the roadway to the right of the edge stripe. AASHTO recommends paved shoulders specifically for bicycle accommodation improvements in rural areas. Shoulders will be paved in accordance with design standards and paved shoulder studies. Bicycle traffic on a paved shoulder will typically be one- directional with the flow of traffic, therefore both shoulders will be paved when providing accommodation for bicyclists. . Wide Curb Lanes: An outside travel lane on highway sections with a width of greater than 12 feet (14 feet typically). Used primarily in urban areas, the wide curb lanes can allow road use by both bicyclists and motorists without conflict. . Bicycle Lane: A portion of the roadway which has been designated by striping, signing and pavement markings for the preferential or exclusive use of bicyclists. Bicycle lanes should always be one-way facilities carrying traffic in the same direction as adjacent motor vehicle traffic, and they should not be placed between parking spaces and the curb. Bicycle lanes offer a channelizing effect on motor vehicles and bicycles. . Separated Bicycle 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. Incidental design factors that improve the safety of bicycle travel will be considered on all state highway improvements. These include but are not limited to: . Drainage grates and utility covers suitable for bicycle travel . At-grade railroad crossings that accommodate bicycle movements Implementation Consideration of bicycle accommodation will occur at all stages of planning and project development. When feasible, the recommended design treatments will be implemented as part of new construction, reconstruction, or preservation of the roadway. Accommodations requiring grading andlor the purchase of right-of-way will normally not be considered as part of a highway preservation improvement. Consideration of bicycle accommodation will not occur as part of highway maintenance activities. When accommodation is provided as part of a highway improvement project, the cost for the faCility will be considered an additional highway construction cost. Providing bicycle accommodation independent of a highway construction project will be considered with construction funding obtained from local jurisdictions or other federal and non-road use tax state sources. Maintenance . The department will be responsible for the ongoing maintenance of bicycle facilities within the state highway right-of-way. . The department will not be responsible for maintenance of bicycle accommodations outside of the state highway right-of-way. Therefore, maintenance responsibility will need to be determined as part of the discussions on the location of accommodation with the local jurisdiction. Pedestrian Accommodation Guidance The department will consider the impacts to pedestrian accommodation at all stages of the project development process and encourage pedestrian accommodation efforts when impacted by highway improvements. Cost of these accommodations made at the time of the highway improvement will be considered additional roadway construction costs. Providing pedestrian accommodation independent of a highway construction project will be considered with construction funding obtained from local jurisdictions or other federal and non-road use tax state sources. Transit Accommodation Guidance Transit service is recognized as an important component for providing an alternative transportation choice for Iowans in both rural and urban areas, as well as a cost- effective option for the transportation disadvantaged. One of the directives from Iowa in Motion is to consider accommodations to support safe and convenient public transportation. In response to that direction the following guidance has been developed to implement the consideration of transit accommodation on the state highway system. Development Guidance The department will consider improvements that support safe and convenient public transportation on state highway system construction projects as they are planned and developed. In addition, the department will encourage Metropolitan Planning Organizations and Regional Planning Affiliations to plan for transit accommodations in their areas both on and off the state highway system. All transit accommodation will be developed in cooperation with the local jurisdictions and transit providers. . Safety: The safety of passengers, pedestrians, transit operators and motorists is of the highest priority. All facilities shall be located so conflicts between pedestrians, passengers and motorists in adjacent lanes are minimal. Curb and pavement conditions shall be maintained in order to minimize hazards. Sidewalks to and from bus stops shall be considered to accommodate the movement of transit riders. . Pavement: Roadways and intersections with bus traffic and bus stops shall be designed to accommodate the size, weight, and turning requirements of buses. Roadway pavements and shoulders shall be of sufficient strength to accommodate repetitive bus axle loads. . Turnina Radius: At intersections that are turning points for buses, turning radii shall be such that they provide safe and easy maneuverability of the buses that most frequently use the road. . Bus Bay (or turnout): A bus bay is a specially constructed area separated from the travel lanes and off the normal section of a roadway that provides for the pick up and discharge of passengers. This design allows for through traffic to flow freely without the obstruction of stopped buses. Bus bays shall be considered at a location when any of the following factors are present: . Traffic in the curb lane exceeds 250 vehicles during the peak hours . Posted traffic speed limit is greater than 35 mph . Bus volumes are 5 or more per peak hour . Passenger volumes exceed 20 boardings an hour . Average peak period dwell time exceeds 30 seconds per bus . History of traffic and/or pedestrian accidents at stop location . Sight distances prevent traffic from stopping safely behind a stopped bus . Shelters: Shelters provide protection from the elements and seating while passengers wait for a bus. Standardized shelters exist that accommodate various site demands and different passenger volumes. The location of shelters should enhance the circulation patterns of patrons, reduce the amount of pedestrian congestion at a stop, and reduce conflict with nearby pedestrian activities. The need for shelters is usually subject to passenger boardings. The department will not participate in the construction or maintenance of shelters. The shelter will be located offset from the through traffic lane for the safety of the, pedestrians in the shelter and the motorists. The distance of the offset will be determined by the department in cooperation with the local jurisdictions and transit providers. . Bus Stop Location: Determining the proper location of bus stops involves choosing among far-side intersection, near-side intersection, and mid-block stops. Each stop location has unique advantages and disadvantages that must be reviewed by the department, transit provider, and local jurisdiction. Some of the factors to be considered when selecting the location of bus stops include the follOWing: . Passenger protection from passing traffic . Access for people with disabilities . Proximity to major trip ge'lerators . Street lighting . Impact of the bus stop on adjacent properties . Bus routing patterns (Le., individual bus movements at an intersection) . Types of traffic signal controls . Width of sidewalks . Pedestrian activity through intersections . Volumes and turning movements of other traffic . Siqnalized Intersections: When signalized intersections are located near bus stops, the timing of the signal and the potential use of advanced technology systems shall be reviewed to determine if changes can be made to better facilitate the flow of pedestrians. . Park and Ride Lots: The department, in cooperation with Metropolitan Planning Organizations and Regional Planning Affiliations, will identify needs and locations for park and ride lots. Implementation Consideration of transit accommodation will occur at all stages of planning and project development. When feasible, the recommended design treatments will be implemented as part of new construction, reconstruction, or preservation of the roadway. Accommodations requiring grading and/or the purchase of right-of-way will not normally be considered as part of a highway preservation improvement. Consideration of transit accommodation will not occur as part of highway maintenance activities. When accommodation is provided as part of a highway improvement project, the cost for the accommodation (except bus shelter construction) is considered an additional highway construction cost. Providing transit accommodation independent of a highway construction project will be considered with construction funding obtained from local jurisdictions or other federal and non-road use tax state sources. CIN Rail/Highway Grade Separation Guidance Legislation establishing the Commercial and Industrial Network (CIN) states that "the purpose of this highway network shall be to improve the flow of commerce; to make travel more convenient, safe, and efficient; and to better connect Iowa with regional, national, and international markets." Consistent with this statement, Iowa in Motion called for the evaluation of all CIN rail/highway at-grade crossings to determine the need for. grade separations. Separations at CIN rail/highway crossings will benefit Iowans by eliminating conflicts, reducing accidents, and improving operating efficiency of both the railroad and the CIN. This section provides guidance on the evaluation and implementation of CIN rail/highway grade separations. Evaluation To determine grade separation needs and priorities, the department will evaluate CIN rail/highway at-grade crossings using factors listed below. The evaluation process does not include CIN rail/highway crossings located on highways that will be bypassed in the future. For example, a rail/highway crossing within a city that will be bypassed in two years does not need to be evaluated because the CIN designation will move to the bypass once it is constructed. . Exposure Factor (product of existing average daily traffic and average number of trains per day) . Traffic volumes . Truck volumes . Rail traffic volumes (regular and seasonal) . Accident rates . Benefit vs. cost analysis . Programmed and planned highway projects . Land use . Location constraints (e.g. topography) . Future rail plans (potential for rail abandonment) . Other factors as necessary Implementation Typically, CIN rail/highway crossings will be grade separated. In some cases grade separation will not be required if the railroad line has been abandoned, abandonment proceedings have begun, or factors are identified that make grade separation impractical. In most cases, grade separations will be constructed in conjunction with highway construction on new alignment or highway reconstruction. In some cases it may be appropriate to develop grade separation projects independent of other highway improvements. Highway projects in the 1999-2003 Transportation Improvement Program with programmed right of way and/or construction monies will not be modified to include grade separations based on this guidance. Modifying programmed highway projects would delay the improvement and add costs which cannot be funded without delaying other projects. If the evaluation shows that grade separation is impractical, alternative solutions will be considered to accomplish the goals of this guidance. Possible alternative solutions include construction of a highway bypass, relocation of the railroad, or addition of Intelligent Transportation System (ITS) features (e.g.. installation of variable message signs which redirect motor vehicle traffic to existing grade separations). Bypass Guidance The state highway system provides motor vehicles the means to travel to all regions of Iowa, the Midwest, and the United States. The state highway system is stratified into levels which describe the type of access provided: Interstate - national; Commercial and Industrial Network (CIN) - Midwest; Area Development - statewide; Access Routes- county wide; and Local Service - local. Because of the different types of service these levels provide, the type of traffic on those levels varies significantly. For example, the majority of traffic on the Interstate system is traveling long-distances in as little time as possible. On the other end of the spectrum, the majority of traffic on Access Routes and Local Service highways are merely traveling from community to community within a county wide area. On the Interstate system, full-access control is provided allowing traffic to move freely on the system. Off the Interstate system, traffic on state highways may be impeded as highways pass through communities because of traffic signals, stop signs, and increased congestion. On higher level state highways, this impediment to traffic flow is contrary to the service the highway is intended to provide to the majority of traffic using the highway. This is especially true on the CIN. The CIN was designated by the Transportation Commission as directed by the Iowa Legislature. The legislature stated the goal of the CIN is to "improve the flow of commerce; to make travel more convenient, safe, and efficient; and to better connect Iowa with regional, national, and international markets." The construction of bypasses on the CIN is an important activity to meet the legislatively directed goal of the CIN. The following benefits of highway bypasses all contribute to meeting the goal of the CIN: . Safety improvements reduce injuries and deaths resulting from accidents . Travel time is reduced for both people and goods . Lower costs of production due to greater certainty of arrival time of inputs, particularly in the case of just-in-time manufacturing . Decrease in fuel and other vehicle operating costs . Reduced noise and air pollution . Reduced congestion within the bypassed community Even though there are many benefits due to bypasses, the decision to construct a bypass must be made carefully because of the construction costs and the economic and social impacts on the bypassed community. This guidance describes the factors used in the evaluation to determine the need to bypass a community. Evaluation The impacts of a bypass can vary significantly from community to community. To identify these impacts it is important that an evaluation be conducted in each case. This is also important because the varying impacts and circumstances make it difficult to provide specific rules on when bypasses should or should not be built. As bypass needs are evaluated, local residents and communities will be consulted and asked to provide input in the decision making process. When determining the need to bypass a community, the department will evaluate the following factors: . Planning Classification of the Highway . Interstate: The Interstate is required to have full-access control, therefore bypasses are not an issue on this system. . Commercial and Industrial Network (CIN): As described earlier in the guidance, the free flow of traffic on this level is important due to the type of traffic that is served and to meet the legislatively directed goals of the CIN. Therefore, bypasses have been found to be beneficial. . Area Development: This level serves traffic that is traveling to and from different regions of the state. In some instances, the predominant traffic on an Area Development highway may benefit from a bypass. . Access Routes: Highways on this level typically will not benefit from bypasses as the traffic is traveling short distances. . Local Service: Bypasses will not be constructed on Local Service routes due to the short intra-county trips associated with these highway. . Amount of Through Traffic The benefits of a bypass increase as the number of vehicles that pass through a community increases. A bypass allows these vehicles to make the trip without driving through the community. This reduces congestion in the community, the number of accidents, travel time, and vehicle operating costs. In addition to total through traffic, the mix of through traffic (I.e. automobiles vs. trucks) is also important because of impacts on congestion, noise, and air pollution. . Corridor Design . Four-Lane: Corridors that are four-lane or are to be built as four-lane facilities will typically benefit from the construction of bypasses. This is due to the amount of traffic on the facility and driver expectation of free flow. Four-lane corridors on the CIN will typically bypass communities with full access control. . SUDer-2: Corridors that are Super-2 or will be built as Super-2 facilities may not require bypasses of communities. Because Super-2 highways are the minimum standard for the CIN regardless of traffic levels and because Super-2 highways are being built on the Area Development level, the need for a bypass is not as clear as it might be on a four-lane corridor. Therefore, the consideration of the other factors is more important in the evaluation. In cases where a community is not bypassed on a super-2 corridor, a higher level of access control may be needed to assure the benefits of a super-2 highway are preserved. . Two-Lane: Two-lane corridors typically would not require bypasses of any community. . Land Use Plans Community and county land use plans will be reviewed to identify development plans in the area and the impacts that could result from construction of a bypass. . User Benefits An evaluation of the user benefits associated with the bypass will be conducted. This will provide a measure of the accident reduction, travel time reduction, and vehicle operating cost savings of constructing a bypass that can be compared with the cost of constructing a bypass.