Appleton (Fox Cities) Transportation Management Area & Oshkosh Metropolitan Planning Organization Bicycle and Pedestrian Plan

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Transportation Management Area

& Oshkosh Metropolitan Planning Organization

Bicycle and Pedestrian Plan - 2014

Adopted

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iii TABLE OF CONTENTS

EXECUTIVE SUMMARY ... vii

CHAPTER 1: INTRODUCTION ... 1

1.1 Background Information ... 1

1.2 Benefits of Bicycle and Pedestrian Facilities and Programs ... 2

Economic ... 2

Real Estate Values ... 3

Health ... 3

Environmental ... 5

Congestion Management... 5

Bicycle and Pedestrian Safety ... 6

1.3 Why a Regional Plan ... 7

CHAPTER 2: PLAN DEVELOPMENT ... 11

2.1 Steering Committee ... 11

2.2 Plan Development Process ... 12

Current Conditions Inventory and Analysis ... 12

Development of Plan Recommendations ... 12

Implementation and Benchmarking ... 12

Public Participation Process ... 12

Public Information Meetings ... 12

Facility-Based Comments ... 13

Policy-Based Comments ... 13

Community Outreach ... 13

2.3 Plan Vision ... 14

2.4 Plan Goals ... 14

CHAPTER 3: CURRENT CONDITIONS INVENTORY AND ANALYSIS ... 15

3.1 Overview ... 15

Appleton (Fox Cities) TMA Municipalities ... 15

Oshkosh MPO Municipalities ... 15

Population Demographics... 15

Commuting Mode Share ... 16

Crash Data ... 18

Count Data ... 19

Links to Transit ... 20

Health Data ... 21

Health Outcomes vs. Health Factors ... 22

Existing Bicycle and Pedestrian Network ... 22

Pedestrian Facilities ... 22

Bicycle Facilities... 22

Bike and Walk Audit Results ... 26

User Survey Results ... 27

3.2 Existing Plans, Programs, Partners, and Policies ... 27

Existing Plans ... 27

Existing Programs ... 28

Fox Valley Bike Challenge ... 28

Safe Routes to School (SRTS) ... 28

East Central Wisconsin Regional SRTS Program ... 29

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iv

Fox Cities Greenways ... 31

Fox Cities Cycling Association ... 31

Oshkosh Cycling Club ... 32

Weight of the Fox Valley ... 32

Well City Fox Cities and Well City Oshkosh ... 32

Activate Fox Cities ... 33

Existing Policies ... 33

Bicycle Friendly Communities ... 33

Walk Friendly Communities ... 33

Audit Results ... 35

CHAPTER 4: BICYCLE AND PEDESTRIAN FACILITY TYPES ... 115

4.1 Bicycle and Pedestrian Users... 115

4.2 Pedestrian Facilities ... 117

Sidewalks ... 117

Roadway Crossing Facilities ... 118

Pedestrian Facility Design Guidance ... 119

4.3 Bicycle Facilities ... 119

Shared Use Path ... 120

Bike Lane ... 121

Shared Lane Marking (Sharrow) ... 121

Signed Shared Roadway (Bike Route) ... 122

Bicycle Facility Design Guidance ... 122

CHAPTER 5: RECOMMENDATIONS ... 139

5.1 Regional Bicycle and Pedestrian Network ... 139

5.2 Non-Infrastructure Recommendations ... 147

The “5 E’s” ... 147

CHAPTER 6: IMPLEMENTATION AND FINANCING ... 165

6.1 Implementation ... 165

Role of Appleton (Fox Cities) and Oshkosh Bicycle and Pedestrian Steering Committee ... 165

Role of East Central Wisconsin Regional Planning Commission as Staff for the TMA and MPO ... 165

Measuring Progress ... 166

6.2 Financing ... 166

Local Capital Improvement Programs (CIPs) ... 166

Surface Transportation Program – Urban (STP-Urban) ... 167

Transportation Alternatives Program (TAP) ... 167

Highway Safety Improvement Program (HSIP) ... 168

Recreational Trails Aid Program (RTA) ... 168

Metropolitan Planning (PL) Funds ... 168

EPA “Climate Showcase Communities” Grants ... 168

U.S. Department of Housing and Urban Development (HUD) Community Development Block Grants (CDBG) ... 169

The Robert Wood Johnson Foundation ... 169

Fox Cities Visitors Bureau and Convention Center – Tourism Development Grant Fund ... 169

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v APPENDICES

Appendix A: Quick Facts on Bicycling and Walking ... 175

Appendix B: Public Participation Plan Summary ... 185

Appendix C: Local Plans Reviewed ... 199

Appendix D: Bicycle and Pedestrian Resources ... 201

Appendix E: Steering Committee Agendas and Summary of Proceedings ... 203

Appendix F: Glossary of Terms and Acronyms ... 247

Appendix G: MPO Approved Resolution ... 249

FIGURES Figure 1: Speed of Vehicles and Survival of Pedestrians ... 7

Figure 2: Population Demographics by TMA and MPO ... 16

Figure 3: Commuting Mode Share for Appleton (Fox Cities) TMA ... 17

Figure 4: Commuting Mode Share for Oshkosh MPO ... 17

Figure 5: Appleton (Fox Cities) TMA Bicycle and Pedestrian Crash Data ... 18

Figure 6: Oshkosh MPO Bicycle and Pedestrian Crash Data ... 19

Figure 7: Valley Transit Bike Rack Usage ... 21

Figure 8: GO Transit Bike Rack Usage ... 21

Figure 9: Four Types of Transportation Cyclists in Portland ... 116

MAPS Map 1: Appleton TMA & Oshkosh MPO Study Area ... 77

Map 2: Appleton TMA Study Area ... 79

Map 3: Oshkosh MPO Study Area ... 81

Map 4: Appleton TMA School Locations... 83

Map 5: Oshkosh MPO School Locations ... 85

Map 6: Appleton TMA Crash Data... 87

Map 7: Oshkosh MPO Crash Data ... 89

Map 8: Appleton TMA Pedestrian & Bicycle Counts ... 91

Map 9: Oshkosh MPO Pedestrian & Bicycle Counts ... 93

Map 10: Appleton TMA Transit Routes ... 95

Map 11: Oshkosh MPO Transit Routes ... 97

Map 12A: Appleton TMA & Oshkosh MPO Health Outcome Rankings ... 99

Map 12B: Appleton TMA & Oshkosh MPO Health Factor Rankings ... 101

Map 13: Appleton TMA Bike Rack Inventory ... 103

Map 14: Oshkosh MPO Bike Rack Inventory ... 105

Map 15: Appleton TMA Existing Pedestrian Facilities... 107

Map 16: Oshkosh MPO Existing Pedestrian Facilities ... 109

Map 17: Appleton TMA Existing Bicycle Facilities ... 111

Map 18: Oshkosh MPO Existing Bicycle Facilities ... 113

Map 19: Appleton TMA Regional Bicycle and Pedestrian Network ... 153

Map 20: Oshkosh MPO Regional Bicycle and Pedestrian Network ... 155

Map 21: Appleton MPO Existing, Planned, & Recommended Pedestrian Facilities ... 157

Map 22: Oshkosh MPO Existing, Planned, & Recommended Pedestrian Facilities ... 159

Map 23: Appleton TMA Existing, Planned, & Recommended Bicycle Facilities ... 161

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vi

TABLES

Table 1: Bicycle and Pedestrian Steering Committee ... 11

Table 2: Population Demographics by TMA and MPO ... 16

Table 3: Appleton (Fox Cities) TMA Bicycle and Pedestrian Crash Data ... 18

Table 4: Oshkosh MPO Bicycle and Pedestrian Crash Data ... 18

Table 5: Bicycle and Pedestrian Count Locations ... 19

Table 6: Future Bicycle and Pedestrian Count Locations ... 20

Table 7: County Health Rankings ... 22

Table 8: Appleton (Fox Cities) TMA Existing Pedestrian Facility Miles ... 23

Table 9: Appleton (Fox Cities) TMA Existing Bicycle Facility Miles ... 24

Table 10: Oshkosh MPO Existing Pedestrian Facility Miles... 25

Table 11: Oshkosh MPO Existing Bicycle Facility Miles ... 26

Table 12: Existing Roadways with Pedestrian and Bicycle Facilities ... 26

Table 13: Bike and Walk Audit Locations ... 27

Table 14: Schools Participating in the Regional Safe Routes to School Program ... 30

Table 15: WisDOT Guidelines for Sidewalk Placement ... 118

Table 16: Types of Pedestrian Facilities ... 119

Table 17: Types of Bicycle Facilities ... 120

Table 18: Appleton (Fox Cities) TMA Regional Bicycle and Pedestrian Network ... 141

Table 19: Oshkosh MPO Regional Bicycle and Pedestrian Network ... 145

Table 20: Education Recommendations ... 148

Table 21: Enforcement Recommendations ... 149

Table 22: Encouragement Recommendations... 150

Table 23: Engineering Recommendations ... 151

Table 24: Evaluation Recommendations ... 152

Table 25: Appleton TMA and Oshkosh MPO Bicycle and Pedestrian Five Year Implementation Plan (2015-2019) ... 171

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Appleton (Fox Cities) TMA and Oshkosh MPO Bicycle and Pedestrian Plan Chapter 3: Current Conditions Inventory and Analysis

CHAPTER 3: CURRENT CONDITIONS INVENTORY AND ANALYSIS

Over the last 10 years, municipalities within the Appleton (Fox Cities) Transportation Management Area (TMA) and Oshkosh Metropolitan Planning Organizations (MPO) have continued to increase the amount of bicycle and pedestrian facilities, programs, and policies. A thorough analysis of the existing resources for bicycle and pedestrian facilities in both the Appleton (Fox Cities) TMA and Oshkosh MPO were conducted. An analysis of existing

conditions included looking at bicycle and pedestrian facilities that are currently in use, facilities that are planned or programmed for construction in the near future, popular origins and

destinations of bicycle and pedestrian trips, and existing opportunities and constraints that might shape how bicycle and pedestrian infrastructure and programs are developed in the future.

There are over thirty municipalities within the Appleton (Fox Cities) TMA and Oshkosh MPO.

3.1 OVERVIEW

Appleton (Fox Cities) Transportation Management Area (TMA) Municipalities

City of Appleton Town of Buchanan Town of Menasha

City of Kaukauna Town of Center Town of Neenah

City of Menasha Town of Clayton Town of Vandenbroek

City of Neenah Town of Ellington Town of Vinland

Village of Combined Locks Town of Freedom Calumet County

Village of Harrison Town of Grand Chute Outagamie County

Village of Kimberly Town of Greenville Winnebago County

Village of Little Chute Town of Harrison

Village of Sherwood Town of Kaukauna

Oshkosh Metropolitan Planning Organization (MPO) Municipalities

City of Oshkosh Town of Nekimi Town of Utica

Town of Algoma Town of Omro Town of Vinland

Town of Black Wolf Town of Oshkosh Winnebago County

Population Demographics

The Appleton (Fox Cities) TMA has a population of 216,154 and the Oshkosh MPO has a population of 74,495 (Source: U.S. Census, 2010). In the Appleton TMA, the majority of the population falls within the 20-44 and 45-64 year categories. Approximately 26.7% of the population is under the age of 19, while 1.9% of the population is over the age of 85. In the

Appleton TMA Population – 216,154 Oshkosh MPO Population – 74,495 Source: U.S. Census, 2010

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Oshkosh MPO, the majority of the population falls within the 20-44 and 45-64 year categories. Approximately 25.4% of the population is under the age of 19, while 2.0% of the population is over the age of 85.

Table 2: Population Demographics by TMA and MPO

Under 5 years 5 – 19 years 20 - 44 years 45 – 64 years 65 – 84 years Over 85 years

Appleton (Fox Cities) TMA 6.4% 20.3% 34.3% 26.9% 10.2% 1.9%

Oshkosh MPO 5.9% 19.8% 35.0% 26.7% 10.9% 2.0%

Commuting Mode Share

People under 16 years of age take a disproportionate number of cycling trips for the size of their age group, making up only 21% of the U.S. population but taking 39% of all cycling trips. Sixty-six percent of the population, those aged 17-64, make 54% of cycling trips. Walking trips, on the other hand, are distributed more proportionally among all age groups. Senior citizens (over sixty-five) take the fewest walking or cycling trips.48

0.0% 20.0% 40.0% 60.0% 80.0% 100.0% Appleton MPO

Oshkosh MPO

Figure 2: Population Demographics by TMA and MPO

Under 5 years 5 - 19 years 20 - 44 years 45-64 years 65 - 84 years over 85 years

School Districts within

Appleton (Fox Cities) TMA & Oshkosh MPO

Appleton School District Freedom School District Hortonville School District Kaukauna School District Kimberly School District Little Chute School District Menasha School District Neenah School District Oshkosh School District

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A recent report released by U.S. Public Interest Research Group (PIRG) found that Americans took nearly 10 percent more trips via public transportation in 2011 than in 2005. The nation also saw increases in commuting by bike and on foot.49 In the study it was also noted that

Millennials (people born between 1983 and 2000) drove 23% fewer miles on average than any other group. Millennials are more likely to live in urban and walkable neighborhoods and are more open to other forms of transportation (i.e. transit, bicycle and walking). 50

Source: U.S. Census 2010

BO8006: Sex of Workers by Means of Transportation to Work – Universe: Workers 16 years and over 2008-2012 American Community Survey 5 –Year Estimates

Vehicle (91.80%) Worked at Home (3.50%) Walked (2.34%) Taxicab, Motorcycle, Other (1.17%) Public Transportation (0.64%) Bicycle (0.55%) Figure 3: Commuting Mode Share for Appleton

(Fox Cities) TMA

Vehicle (90.07%) Walked (3.75%) Worked at Home (2.98%) Public Transportation (1.28%) Bicycle (0.98%) Taxicab, Motorcycle, Other (0.94%) Figure 4: Commuting Mode Share for Oshkosh MPO

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Crash Data

Table 3: Appleton (Fox Cites) TMA Bicycle and Pedestrian Crash Data

2007 2008 2009 2010 2011 2012 2013 Total Bicycle Crashes 34 27 26 32 16 32 25 192 Pedestrian Crashes 2 4 1 5 3 2 2 19

Table 4: Oshkosh MPO Bicycle and Pedestrian Crash Data

2007 2008 2009 2010 2011 2012 2013 Total Bicycle Crashes 26 22 16 26 25 34 22 171 Pedestrian Crashes 17 14 13 23 23 21 16 127 0 5 10 15 20 25 30 35 2007 2008 2009 2010 2011 2012 2013 N um ber of C ra s hes Years

Figure 5: Appleton (Fox Cities) TMA Bicycle and Pedestrian Crash Data

Bicycle Crashes Pedestrian Crashes

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Source: Wisconsin TOPS Lab – 2007-2013

For the bicycle crashes, the bike flag was selected in the data and then sorted by year. For the pedestrian crashes, the pedestrian flag was selected in the data and then sorted by year.

Count Data

Individual communities throughout the Appleton (Fox Cities) TMA and Oshkosh MPO have begun to collect bicycle and pedestrian counts at various locations. During this planning process, it was noted that count procedures are not consistent throughout the municipalities within the TMA and the MPO.

Table 5: Bicycle and Pedestrian Trail Count Locations

Location (Trail/Street) Municipality Date Annual Average Daily Count Total

CB Trail (south of CTH BB) Town of Menasha, Winnebago County

06/2013 66

Apple Creek Trail City of Appleton, Outagamie County

06/2013 455

Plank Rd./STH 114 City of Menasha, Winnebago County

06/2013 132

Cold Spring Road Town of Menasha, Winnebago County

06/2013 1,338

CTH A and Sunnyview Rd. (CTH Y)

Winnebago County 06/2013 77

Trestle Trail Town of Menasha, Winnebago County

2013 384

North Lake Street Trail Town of Menasha, Winnebago County

2013 3

Jacobson Trail Town of Menasha, Winnebago County

2013 15

Source: WisDOT and local municipalities 0 5 10 15 20 25 30 35 2007 2008 2009 2010 2011 2012 2013 N um ber of C ra s hes Years

Figure 6: Oshkosh MPO Bicycle and Pedestrian Crash Data

Bicycle Crashes Pedestrian Crashes

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The following are additional locations that could be counted in the future. It is recommended in this plan that a standard count procedure is developed and implemented.

Table 6: Future Bicycle and Pedestrian Count Locations

Location (Trail/Street) Municipality

Noe Rd. Trail Village of Harrison, Calumet County

CTH II by Spring Road Elementary School

Town of Menasha, Winnebago County

CTH II East of CTH CB Town of Menasha, Winnebago County

CTH E – Off Road Trail

STH 76 Underpass Town of Greenville, Outagamie County

CE Trail near Eisenhower Dr. Village of Kimberly, Outagamie County

Lily of the Valley Winnebago County

STH Underpass Town of Greenville, Outagamie County

Newberry Trail City of Appleton, Outagamie County

Friendship Trail (East of Cold Spring Road)

Friendship Trail (West of Cold Spring Road)

Bike Lanes Various Municipalities Links to Transit

Mass transit is complementary to bicycling and walking for transportation. Mass transit can reduce traffic congestion and pollution and when designed with concessions for bicycling and walking, it can also encourage people to include physical activity in their daily commutes. Both Valley Transit and GO Transit have equipped their buses with bicycle racks, allowing riders to combine a bicycle and a bus trip. When a commuter is able to take a bicycle, the distance they have to travel in a reasonable amount of time is greatly increased. In Figure 7 and Figure 8, it is was noted that bike rack usage for Valley Transit and GO Transit peaks during the warmer months of the year (April – October) and declines during the colder months of the year. Refer to Map 10 and Map 11 regarding the existing transit routes.

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Health Data

The County Health Rankings and Roadmaps program is a collaboration between the Robert

Wood Johnson Foundation and the University of Wisconsin Population Health Institute. The purpose of the rankings is to help communities focus on factors that affect health. Calumet, Outagamie, and Winnebago Counties overall have a population that is fairly healthy compared to the Wisconsin population.

0 500 1,000 1,500 2,000 2,500 Numb e r of Us e s

Figure 7: Valley Transit Bike Rack Usage May, 2011 - December, 2013 0 200 400 600 800 1000 1200 Nu mb er o f Use s

Figure 8: GO Transit Bike Rack Usage May, 2011 - December, 2013

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Table 7: County Health Rankings

Wisconsin Calumet Outagamie Winnebago

Overall Ranking – Health Outcomes 6 21 39 Health Factors 6 9 17 Health Behaviors 15 32 33 Adult Obesity 29% 31% 31% 30% Physical Inactivity 22% 18% 22% 22% Access to exercise opportunities 78% 76% 84% 75% Physical Environment 13 22 31

Air pollution - particulate matter 11.5 11.5 11.4 11.6 Driving alone to work 80% 84% 84% 84% Long commute – driving alone 26% 23% 19% 16%

Source: County Health Rankings & Roadmaps, 2014

Health Outcomes vs. Health Factors

Health outcomes in the County Health Rankings represent how healthy a county is. Two types of health outcomes are measured: how long people live (length of life) and how healthy people feel while alive (quality of life).

Health factors in the County Health Rankings represent what influences the health of a county. There are four types of health factors that are measured: health behaviors, clinical care, social and economic, and physical environment factors.

The built environment affects a communities overall health. The purpose of including the County

Health Rankings data was to compare the health of their county with the amount of existing

bicycle and pedestrian facilities and programs. Existing Bicycle and Pedestrian Network

The Appleton (Fox Cities) TMA and Oshkosh MPO have over thirty municipalities. During this planning process, it was identified that each municipality had their own definition of bicycle and pedestrian facilities. With the assistance of the bicycle and pedestrian steering committee, the planning team developed the following bicycle and pedestrian definitions:

Pedestrian Facilities

Pedestrian facilities are defined as a sidewalk and shared use path (both paved and unpaved). As noted in Table 8 and Table 10, the majority of pedestrian facilities are located within the cities and villages within the Appleton (Fox Cities) TMA and Oshkosh MPO.

Bicycle Facilities

Bicycle facilities are defined as sharrows, marked bike lanes, and shared use paths (both paved and unpaved). A few communities within the Fox Valley also have bike routes, which were

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either signed or unsigned. For consistency through this planning process the planning team and steering committee, did not include signed or unsigned bike routes in the existing bicycle facility data.

Table 8: Appleton (Fox Cities) TMA Existing Pedestrian Facility Miles

Communities Population Off-Road Paved (Miles) Off Road Not Paved (Miles) Sidewalks (Miles) Total Miles of Pedestrian Facilities Miles Per 1000 Capita Cities Appleton 72,623 15.41 0.17 501.42 517 7.12 Menasha 17,353 3.79 0 89.52 93.31 5.38 Neenah 25,501 16.57 0.25 153.34 170.16 6.67 Kaukauna 15,462 2.96 5.58 124.76 133.3 8.62 Villages Combined Locks 3,328 0.52 2.14 22.32 24.98 7.51 Harrison 7,373 2.47 8.66 1.3 12.43 1.69 Little Chute 10,449 2.36 0 79.6 81.96 7.84 Kimberly 6,468 4.43 0.31 55.5 60.24 9.31 Sherwood 2,713 7.2 0.09 3.8 11.09 4.09 Towns Buchanan 6,755 2.22 0.23 0 2.45 0.36 Center 3,402 0 0 0