Staff is seeking direction from the Planning Commission concerning planning for bicycle and pedestrian accommodations within the Transportation Element of the Comprehensive Plan (Consistent with the Code of Virginia, Section 15.2-2223). Particularly, staff seeks feedback on: (1) proposal to shift crucial elements of the 2011 adopted Trailways Master Plan into the Comprehensive Plan, whereby abandoning a separate standalone plan; (2) identification of major thoroughfares where bicycle and pedestrian (sidewalks or planned recreational trails) accommodations should be expected in the County.
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Proposal to shift crucial bicycle and pedestrian elements from the 2011 adopted Trailways Master Plan into the Comprehensive Plan, whereby abandoning a separate standalone plan.
Planning staff in collaboration with County Transportation staff are in the process of reviewing and drafting updates to the Transportation Element of the Comprehensive Plan. One part of that plan includes transportation alternatives offering different modes of transportation with the ultimate goal of providing more choice and reducing demands upon roadways, especially during peak hours. Transportation alternatives tend to focus on things like telecommuting, rail, ridesharing, van pools, mixed-use development (live, work, play concept reducing need to drive long distances for work, etc.), bicycle and pedestrian connectivity, bus/ transit services.
Presently, bicycle and pedestrian connectivity is addressed in the Transportation Element as a transportation alternative but points elsewhere to the standalone Spotsylvania County Trailways Master Plan. Spotsylvania County adopted the Trailways Master Plan in February, 2011 that included plans for both roadside and off road greenway trails. In 2011 the Virginia Chapter of the American Planning Association bestowed the 2011 Outstanding Plan Award- Plan Element upon the Plan. The Plan has historically been a standalone document incorporated by reference within the Comprehensive Plan. In the interest of assuring such a plan does not become outdated or inconsiderate of opportunities that may arise from changes elsewhere within other elements of the Comprehensive Plan, staff is supportive of shifting crucial Trailways Plan elements into this Comprehensive Plan recognizing its applicability to both Transportation planning (road based) and Parks and Recreation level of service standards. Staff feels abandoning the standalone plan model in favor of the Comprehensive Plan better positions it for continued monitor, pursuit, and review and update consistent with the 5 year review and update cycle. Otherwise staff has found there tends to be little impetus to update standalone plans that may become outdated or proactively amended to reflect new opportunities or routing alternatives. The revised and updated Plan embedded within the Comprehensive Plan would address sidewalks and recreational/ commuter trails intended to create an interconnected network of sidewalks and trails cognizant of established Transportation system goals and Parks and Recreation Level of Service Standards where trail deficits are expected to grow to 159 miles by the year 2040 based on projected population growth. The goal of this relocation and revision would be to create a hybrid master plan for Bike/Ped. by generally maintaining the vision previously approved in the Trailways Master Plan with updates focused on reducing potential duplication, identifying road corridors best suited for bike/ped improvements that may complement the recreational trails plan (reducing off road trails through the woods) yet achieving same goals. Staff proposes avoiding a wholesale reboot of the Plan and is not presently looking to totally “reinvent the wheel”. Staff proposes a careful update that would establish a clear County vision for sidewalks and trails that can influence future updates to County Code and Design Standards Manual where issues have been identified related to required frontage improvements. It’s expected this update will also better inform and influence bike/ped related recommendations in case of rezoning and special use permit applications. Maintaining a bicycle and pedestrian plan no matter whether in a standalone document or within the Comprehensive Plan also lends support for grants and road improvement funding requests. Bike/Ped improvements add strength to transportation project applications (such as widening projects) for funding such as Virginia’s Smart Scale applications. Plans also lend support and basis for VDOT Project Scoping, Highway Safety Improvement Program (HSIP) Projects, County comments on transportation projects managed by others, etc.
2. Identification of major thoroughfares where bicycle and pedestrian (sidewalks or planned recreational trails) accommodations should be expected in the County.
There has been much debate regarding the best locations and appropriateness of bicycle and pedestrian infrastructure in certain locations throughout the years. Current Design Standards Manual requirements for sidewalks (attached for reference) are primarily based on the zoning/use of land, regardless of location. Over time, staff has found that this approach has resulted in sidewalks being placed in areas where they may not be warranted or result in a fragmented network of sidewalks since they are not part of a corridor based expectation. For the purpose of this Comprehensive Plan update staff is looking to focus mainly on road frontage infrastructure along higher tier roads in the County; a corridor specific approach. This approach would result in bicycle and pedestrian frontage improvement expectations more in line with corridors specifically identified as part of the Comprehensive Plan. Comprehensive Plan direction is expected to help guide future amendments and streamline bicycle and pedestrian improvements requirements located in the design standards manual. Preliminarily staff believes those roads classified as Minor Collector or higher (excluding Interstate and Ramps) as classified by VDOT functional classifications within the Primary Development Boundary warrant sidewalks (or trails where appropriate). A map depicting these recommended roads for inclusion in the Plan is attached as an exhibit. A corresponding list identifying the particular road segments of interest within the Primary Development Boundary or Lake Anna Area (Route 208) has also been attached for reference.
Generally speaking staff does not believe sidewalk infrastructure is warranted for standalone commercially zoned properties with little to no prospect of future connectivity and limited land use support for commercial proliferation outside of the Primary Development Boundary (PDB). The one exception to this staff notes outside the PDB considering land use designation, existing zoning, and existing development patterns along with a precedent of some existing sidewalk/ trail infrastructure extending to the Louisa County line along Courthouse Rd from Bradley Lane area. Staff believes the mixed use area near Courthouse Road and Lake Anna warrants bike/ped considerations. Otherwise road improvements such as shoulder improvements along rural roads such as those identified as part of Thoroughfare Plan rural roads improvements are likely sufficient.
Recreational trails, or a hybrid of sidewalks and trails on opposite roadsides may be warranted in situations where the planned recreational trails (supported by County Parks and Recreation levels of service standards) plan overlaps road corridors. Staff would like to take advantage of road corridors when opportunities exist as opposed to off road recreational trails (also known as greenways). Staff acknowledges that the planned recreational trails system fits within a regional and national system of trails. Respecting that, recreational trail infrastructure along designated corridors does expand beyond the limits of the Primary Development Boundary. The Virginia Central Rail Trail Plan is an example, stretching to the Orange County line.
It is good to note that unless a major road improvement project is undertaken resulting in lengthy improvements along corridors such as road a widening (including bicycle and pedestrian accommodations), bicycle and pedestrian infrastructure will continue to develop in a piecemeal fashion and connectivity will be established over time with project specific frontage improvements. A corridor specific approach will not prevent piecemeal fragmented sidewalk segments but will better assure infill frontage improvements will make the system whole over time. These piecemeal frontages improvements are not intended to be "sidewalks to nowhere". They are intended as part of a developing plan for bicycle and pedestrian infrastructure that will eventually come together and promote connectivity and ability to go "somewhere".
With guidance from the Planning Commission resulting from this work session staff hopes to move forward to develop a revised trails and sidewalks plan hybrid map in the spirit of the adopted Trailways Master Plan. |