HomeMy WebLinkAboutTransportation Packet March 2024 Pt 26766
TO
O
L
S
&
T
aCTI
C
S
This section breaks down the steps required to implement
an asphalt art project.
When it comes to assembling a team, who does what?
What difficulties should we expect, and what are
some options for handling them? How can funding be
acquired? How do we engage the community? What
are some good ways for the city and neighborhood
groups to work together to implement the project?
These questions and more are addressed here,
drawing on the experience of successful project
teams across the globe.
There is no one-size-fits-all process for asphalt
art — each project will vary depending on its
stakeholders, location, complexity, and scale. but the
most common elements are discussed in detail in the
following pages. They can serve as touchpoints for
every step of your your project, troubleshooting along
the way, and leveraging the best results throughout.
Tools &
Tactics
Same Same but Different, Pittsburgh, Pa
(Case study on page 27)
Mural by ann Lewis
Photo by Pittsburgh International airport
PROJECT INITIaTION (PaGE 68)
• Initial Project Considerations
• Project Management & Schedule
aSSEMbLING a TEaM (PaGE 74)
• What Will the Project Team Do?
• Role of a Community Member
or Nonprofit Organization
• Role of the City
MaNaGING a bUDGET (PaGE 79)
• Establishing a Project budget
• Design Fees
• Fundraising
DESIGN DEVELOPMENT (PaGE 82)
• artist & art Selection
• Contracts, Legal agreements & Permits
• Community Engagement & Design Review
• Design Process & Standards
• Materials & Site Considerations
ENGaGING THE COMMUNITY (PaGE 90)
IMPLEMENTING THE PROJECT (PaGE 92)
• Materials Storage
• Construction Documents
• Site Safety & Traffic Control
• Documentation
MaINTENaNCE & STEWaRDSHIP (PaGE 96)
PROJECT EVaLUaTION (PaGE 100)
68
TO
O
L
S
&
T
aCTI
C
S
:
P
R
O
J
E
C
T
I
N
I
T
I
aTIO
N
Project
Initiation
Projects are typically initiated in one of three ways:
1. Proposed by a community entity such as a nonprofit
organization, informal group, independent artist,
designer, or creative collective to address a community
goal without a formal municipal approval process.
2. Implemented by a local government or municipal
agency based on previous planning efforts or
community requests.
3. Implemented through an ongoing initiative or program
typically run by a local government agency. This
might mean that an agency commissions an artist as
part of a regular program for a particular space or
that the city has an established permitting process
for outside entities to do these projects on their own.
asphalt art projects can be initiated in many ways. They
may originate from a community group seeking to slow
traffic in their neighborhood or in City Hall as part of a
broad planning effort. Some projects are intended only
for a short time, while other may be more permanent.
There are many details to coordinate, but with the
right team and sufficient planning, the project can be
reasonably managed.
Generally, a project is initiated after someone identifies
a potential site for an intervention and has either
the resources, time, or passion to make it happen.
Leadership from one person in particular is critical to the
success of these projects; there should be someone who
is ultimately responsible for managing the schedule
and budget, whether that is a project manager assigned
by the city or an executive director of a nonprofit.
While every project has basic elements, some of the
recommendations in the pages that follow will depend
on the initiating entity (community group or city) and
the municipality’s permitting structure, if any.
6968
This intersection mural in Portland, OR, is one of many done by City
Repair, a nonprofit organization that works hand-in-hand with the
Portland bureau of Transportation to accomplish these projects.
This is a successful example of how nonprofit organizations often lead
asphalt art projects. (Case study on page 19)
Mural by community member Colleen Smith
Photo by Greg Raisman
Generally, a project is
initiated after someone
identifies a potential site
for an intervention and has
either the resources, time, or
passion to make it happen.
70
TO
O
L
S
&
T
aCTI
C
S
Some paint applications, like this one in Des Moines,
may need to be applied by professional contractors.
(Case study on page 21)
Crosswalk Mural by Peter Gibson
Photo by Greater Des Moines Partnership
INITIaL PROJECT CONSIDERaTIONS
Depending on who initiates the project, some preliminary
research and planning will be needed. In the first stages
of planning, consider the questions on the following
pages regarding the location, ownership, creation,
and longevity of a project. Knowing the answers
to these questions up front will help with a smooth
implementation later and raise any red flags about the
selected site. We suggest documenting and discussing
these details and sharing them with all of the project
partners. These questions assume a project location
has been selected, though they are useful for someone
scouting out potential locations as well. Don’t be
disheartened if at first you do not have answers to every
question! Most projects don’t address many of these
items and are still successful.
7170
TO
O
L
S
&
T
a
C
T
I
C
S
:
P
R
O
J
E
C
T
I
N
I
T
I
a
T
I
O
N
new project. See “Materials & Site Considerations”
on page 88 for more information on how to choose
the right coating, pre-treatments, and other methods
to lengthen the life and general durability of a project.
What type of street is being considered and what
is the volume of traffic?
High car volumes will lead to faster wear on the mural,
which should be considered as a factor in paint choice.
Streets with a car volume of 80,000–100,000 aDT
(average Daily Traffic) may not be suitable candidates
for art in the roadway. Wide streets (50'+ or more than
five lanes) are also very challenging, but not impossible.
The higher the volume and speed of cars on the street,
the less appropriate a street is for art in the roadway.
For art in pedestrian spaces, the threshold can be
higher based on the judgment of the project team
and relevant permitting agencies.
Will the site require complex traffic control for
installation? How will the installation affect traffic
flow and the right of way?
Signalized intersections or high-volume roads (over
20,000 aDT) may require more complex traffic control
and redirection. The city may not have the necessary
internal traffic control equipment, and the budget may
not allow for the rental of such equipment, which can
be very costly.
Are there existing marked crosswalks, curb
extensions, or other traffic pavement markings?
Consider how these interact with a potential design.
Some traffic engineers require designs in the crosswalk
to be within the white lines, while others are more
permissive depending on context. Other pavement
markings may be within the area considered for an
asphalt art project. These may be painted over or they
may be incorporated into the design.
Are there other street design elements such as:
ADA ramps, bus stops, electrical poles,
on-street parking, or driveway curb cuts?
These might conflict with proposed curb extensions
or crosswalks and should be considered when
developing the design.
SITE CONSIDERaTIONS
Who controls the site? What entities must
be involved in design review and permitting?
(i.e., department of transportation or public
works, art commission, historic commission,
or other entity).
This is an essential first question because it may be
that the controlling entity has a permitting process
for asphalt art projects that will impact the project
schedule or the entity may not allow asphalt art projects
in the first place.
If you are working on private property, getting
permission in writing from the site owner early on is also
key. You may still need building permits, street closure
permits, or permission from a local arts commission or
historic review commission. Inquire about master plans,
community plans, or other long-term goals for the site.
Inquire about any upcoming projects that may impact
your project. What is a vacant lot this summer might be
a retail location next year. Having that information will
help you evaluate your site and plan for the longevity
of your project.
How might the project complement a previous
planning effort or a local community goal?
Project teams should determine if there are any
existing planning efforts or community goals that this
project might advance. Perhaps the project can be tied
to an ongoing public planning process as an outreach
activity. There may also be funding available for
projects that are a part of a master plan.
What is the condition of the pavement?
Pavement that is in bad shape may need additional
coats of paint or simply need to be patched or
repaved. Crosswalks in particular should be fixed
before the project begins. Paint may make it difficult
for pedestrians to see cracks or other breaks in the
pavement, leading to injury. Some cities repave or
micro-surface asphalt before applying a coating, which
will dramatically improve the longevity of the project
as the coating will adhere much better to fresh asphalt.
If this is not feasible, cities should consider requiring
certain pavement conditions for accepted projects,
and communities should make sure the area being
requested is in good condition before applying for a
72
TO
O
L
S
&
T
aCTI
C
S
:
P
R
O
J
E
C
T
I
N
I
T
I
aTIO
N
PROJECT DEVELOPMENT
What is the projected duration of the project?
How long is it intended to last?
This will have implications later for maintenance and
paint type. For permanent projects, choose more
durable paints. If the installation will be repainted
within a year, then less durable paint can be used.
More durable paints will also be more expensive.
See page 88 for more about paint types and duration.
What is the time frame for implementation? Is
there a specific deadline for project completion
that needs to be met (e.g., the opening of a road
or a public event)? Is the deadline flexible?
Consider factors such as weather, local events,
seasonal changes in population, or holidays as these
might impact the schedule for the installation. See
“Project Management & Schedule” on the following
page for more information on setting a “build date.”
Who is on the core project team?
Who are the key decision makers?
It is important to have representatives from both
the city and the community on the core team. See
“assembling a Team” on page 74 for more on project
team roles and responsibilities.
Who will create required drawings and
construction documents for the project?
If the city is the lead, this may mean using an existing
on-call contract for the creation of striping plans and
maintenance of traffic plans or asking the nonprofit
partner to take on the work of hiring an architect to
create the plans.
What is the budget? Who is paying
for the project?
This will impact material procurement. If the city
is the source of funding, then procurement may be
challenging: materials may be limited to those the
city already has available or can procure with existing
contracts. City leads should consider working with
nonprofit entities that have more flexibility when
spending grant funding.
PROJECT IMPLEMENTaTION & STEWaRDSHIP
Will the project team utilize volunteers
in the implementation?
If so, the team will need liability waivers for volunteers,
a volunteer management plan, and amenities for
volunteers during the install (water, food, shade, etc.).
Volunteers will need to be trained on the material
application and safety. See “Site Safety & Traffic
Control” on page 95.
Are there any business owners and/or residents
adjacent to the site?
If so, these should be the first groups approached
about the project. Getting their support and
participation may be critical to the success of the
project. See “Engaging the Community” on page 90 for
more information about different outreach methods.
How will the project be maintained? Will it be
allowed to fade after one application or will it be
reapplied? Who will maintain the project once
it is complete? Has that entity agreed to
participate in the project? For how long?
all paint and other materials will fade and require
maintenance. How this is addressed might depend on
the entity: is a longer term reconstruction of the street
planned, or is the project intended to be permanent?
If the city is the lead and no upcoming repaving/
reconstruction is in the works, then the city will need to
repaint. If a community group is leading, then the city
may require them to agree to maintain the project for a
certain amount of time. If the project is temporary, the
city will need to consider a removal plan. This will be a
critical detail when choosing materials. See “Planning
for Longevity” on page 88.
For projects that create pedestrian plazas, how will
programming and stewardship be addressed on
an ongoing basis?
Long-term stewardship is a critical part of the success
of a project. Project teams need to consider how
the space will be used after the project is complete.
These responsibilities are often given to local arts
organizations or business Improvement Districts (bIDs) .
7372
TO
O
L
S
&
T
a
C
T
I
C
S
:
P
R
O
J
E
C
T
I
N
I
T
I
a
T
I
O
N
PROJECT MaNaGEMENT & SCHEDULE
One of the first steps when initiating a project is
establishing a time frame and deadline for the design
and implementation of the artwork, along with an
overall schedule of milestones. Set a date that works
for you and your team given local weather, important
holidays, or other events. This is especially important
if you plan on working with volunteers or if your
installation requires a complex traffic control plan.
For example, consider that many communities have
seasonal peaks in tourist activity. You may want to plan
the install around these seasons to avoid a traffic control
conflict or, alternatively, install during the season as a
way of showcasing local art and culture. In the case of
the Coxe avenue example on page 25, the installation
was planned around the Fall “leaf” season, when
asheville sees a spike in tourists coming to see the
leaves change color. The main mural painting activity
became an attraction for many visitors.
Your schedule should act as a to-do list of tasks
to be completed and matters to be addressed,
outlining responsible partners for each task as well
as internal deadlines to meet. Some items might
function as an ongoing task, such as community
and business outreach, while others may need
to meet strict deadlines, like ordering materials
and finalizing the design.
Consider the following common tasks as you
lay out your schedule:
o Identify partners and stakeholders (ongoing task)
o Identify regulatory and political framework
o Pre-evaluation of the site
o Develop budget and procurement list
o Select artist or designer
o Meet with local government staff (if relevant)
o Outreach to local businesses and residents
(ongoing task)
o Develop final design (make sure to incorporate time
for revisions based on community feedback)
o Develop construction documents/striping plans
o acquire permits/traffic control
o Material and supply procurement
o On-site programming or activation
o Create maintenence plan
o Create evaluation plan and monitor performance
Your schedule should act
as a to-do list of tasks to
be completed and matters
to be addressed, outlining
responsible partners for
each task as well as internal
deadlines to meet.
74
TO
O
L
S
&
T
aCTI
C
S
Assembling
a Team
a successful project team, like this one in St. Petersburg led by the
arts alliance, will have representatives from city agencies, community
organizations, and other members of the community.
(Case study on page 15)
Intersection mural by Cecilia Lueza
Photo by beth Reynolds
7574
TO
O
L
S
&
T
aCTI
C
S
:
aSSE
M
bLIN
G
a T
E
aM
WHaT WILL THE PROJECT TEaM DO?
o Decide on roles and responsibilities for each
team member
o Establish answers to the questions listed above
o Manage the administration of the project by
coordinating funding, permission, reviews,
permits, contracts, budgeting, payments,
and communication
o Make sure the community impacted by the project
is aware and supportive of the project
o Develop process for selection of the artist
or designer to create the project
o Participate in design development and review
o Secure materials, equipment, and other necessary
project materials
o Manage the implementation of the project by
developing a detailed plan of action for painting
and installation, being physically present at the site
to assist with hands-on activities from painting to
answering questions from passersby, managing
project volunteers, assisting with day of site needs,
and planning a celebration when it is finished
o Develop a schedule for repair, maintenance,
or refreshing of the project
The most successful projects are collaborations
between the city and a community partner. There
is no one-size-fits-all blueprint for distributing roles
and responsibilities. These will depend on the lead
entity, the permitting framework established by the
city, the capacity of the community organization, and
the resources within the city. In the following sections,
we describe some common roles for both community
organizations and municipal agencies.
The ideal team includes representatives from each
entity collaborating on the project and a project
manager(s) who will lead the team at every step of
the process. Once the project manager(s) have been
selected, their role is to identify the skills needed to
complete the project and to find the balance between
an inclusive team and an effective team that can make
quick decisions. Those leading the project will direct
other team members in their tasks, make sure deadlines
are met, and make final decisions on any component
of the project (e.g., designs, materials used, duration).
Many projects have a small executive Project Team
and a larger Steering Committee. The Project
Team makes critical decisions about the project
and must be empowered to move things forward
on a frequent (perhaps weekly) basis. The Steering
Committee convenes less frequently (perhaps
once a month) and is meant to include a larger
pool of partners with varied expertise.
Team members may include:
• Entity initiating the project
• Site owner(s)
• Public works, transportation, planning, or other
government departments that oversee the public
right of way
• Entities that will implement the project,
if different from above
• Community member(s) who will use the project
• Community member(s) who live or work near
the project
• artist or designer creating the content
for the project
The Project Team makes
critical decisions about
the project and must
be empowered to
move things forward
76
TO
O
L
S
&
T
aCTI
C
S
This project in bankside, London, was awarded funding by
the Transport for London’s Future Streets Incubator Fund,
a program created by the mayor to encourage projects that
improve public spaces in London. (Case study on page 23)
Colourful Crossings mural by Camille Walala
Photo by better bankside
7776
TO
O
L
S
&
T
aCTI
C
S
:
aSSE
M
bLIN
G
a T
E
aM
THE ROLE OF a COMMUNITY MEMbER
OR NONPROFIT ORGaNIZaTION
Some of the common responsibilities of a community
organization on the team are to convene the
community to gather input, conduct volunteer and
business outreach, and ensure an equitable and
transparent process. The community group can be
the communication conduit between the city and the
community at large. Schools, churches, businesses,
and other nonprofit organizations may all be
potential partners.
If a community group is the project lead, it is imperative
that they find a partner within the city government,
either staff or an elected official, to champion the
project and help with any regulatory issues. Making
contact early with the city is key. Check in with your
local planning, public works, or transportation
departments to ask about permits, the design review
process, potential partnerships, and how to implement
your project within their workflow. They may have an
existing program or funding stream to facilitate your
idea, information about insurance requirements, as well
as recommended materials. For example, the City of
austin has a creative crosswalk program for community-
initiated projects. ask members of these departments
to join your project team and be sure to keep them
informed as your plans evolve.
The community group or other third-party entity in many
cases can also handle procurement of materials as a
way of working around complex municipal procurement
rules. They may also take on the programming or
stewardship of a space once completed.
THE ROLE OF THE CITY
Some of the main roles of the city when leading
a team or in a support role are to ensure an
efficient and easy design and permitting process
(e.g., waive fees, offer design review support), to
provide traffic control for implementation, and
to participate in or lead the marketing and data
collection efforts. Many cities have created standards
for the creation of asphalt art that also provide a
permitting pathway for community-led projects.
The city should take the lead on those project elements
for which they have resources or existing processes.
These may include cleaning and preparing the site in
advance of the project and providing any necessary
restriping or touching up of existing striping. If available,
the city should provide transport for or store materials
for the implementation. In many cases, the city can
provide support for implementation through the use of
existing city equipment.
If this is the city’s first time working on a creative street
project, you must enlist the participation of local
community members to bridge the gap between
municipal leaders and the community at large. Many
community organizations and artists may be inspired
by your work and want to participate. Your role as
the city is to help the community group identify key
stakeholders and support the outreach effort by
providing resources such as meeting space, printing
costs, and other logistics.
Once a project has been identified, seek a variety
of partners who can fill roles on the team. as a
municipality, your public works and transportation
departments have deep knowledge about the kinds
of materials that work on your streets, taking into
consideration climate, use, and future plans for specific
locations. Involve these colleagues in the early planning
stages to discuss materials, equipment, process for
street closures, staffing requirements and availability,
and other technical project needs.
after projects have been completed, conduct an exit
interview with project participants to learn from your
pilot, including artists, volunteers, and others who were
on site during implementation. Consider establishing
guidelines and procedures for ongoing projects to make
it easy for community entities and artists to participate.
If a community group is the
project lead, it is imperative
that they find a partner
within the city government
to champion the project
78
TO
O
L
S
&
T
aCTI
C
S
7978
TO
O
L
S
&
T
aCTI
C
S
:
M
aNaGIN
G
a bUDG
E
T
Managing
a Budget
The projects featured in this Guide demonstrate typical funding
sources for asphalt art projects:
• Municipal capital improvement funds or other construction funds
• Municipal art funds (usually based on a percentage of
construction funds allocated for art)
• Grants or funds from local, state, federal, or private sources
(e.g., Seattle Neighborhood Matching Fund, aaRP Community
Challenge grant program)
• Private or public sponsorships
For this ground mural in Times Square, artist Molly Dilworth
was selected from over 150 submissions to NYCDOT’s design
competition launched in 2010. (Case study on page 41)
Cool Water, Hot Island mural and photo by Molly Dilworth.
80
TO
O
L
S
&
T
aCTI
C
S
:
M
aNaGIN
G
a bUDG
E
T
PROJECT bUDGET
One of the main reasons why people turn to ground
murals for improving streets and public infrastructure
is that they are quick and relatively inexpensive. That
said, a reasonable project budget is needed to account
for everything from insurance to paint. Creative street
projects can be affordable — you may be able to secure
donations of high-quality supplies, and some work can
be done by volunteers. However, there are hard costs
associated with all of the project types in this Guide.
The following is a list of potential hard and soft costs
that may be included in the budget, though not all
of these items will apply to every project:
Planning:
o administrative staff time
o Permits or application fees
o Legal fees
o Insurance
o Fundraising and managing project funds
Design:
o artist / designer fees
o Testing materials or design elements
o Producing design review documents
and presentations
Implementation:
o Materials and supplies
o Equipment
o Fabrication of components from specialty
contractors
o Labor
o Maintenance of traffic (street closure fees, police,
traffic control barriers)
o Water, cloths, and tarps for on-site cleanup
o Shade structures or cooling areas
o On-site hospitality for crew and volunteers,
including water, food, and access to a restroom
o On-site storage or security for supplies, equipment,
and personal belongings
o Opening celebration
o Documentation (during install)
Post-Installation / Maintenance
for Long-Term Installation:
o Programming planned during
the life of the project
o Documentation (post-install)
o Labor and materials to refresh project
o Labor and equipment to remove project
DESIGN FEES
To ensure a high-quality asphalt art project, many
project teams formally hire an artist, architect, or
designer to produce a design, develop design
documents, and/or help organize volunteers or the
installation crew to implement the project. In some
cases, an artist may be willing to donate their time and
design for the project, though it is best practice to
include a design fee in a project budget so that artists
get paid fairly for their work. Either way, someone
will need to be responsible for both the creation of a
design and the translation of that design into a built
work — from permit drawings to stencil creation. a good
benchmark for artistic design and project management
is 10–20% of the project budget.
Keep in mind that if an artist or designer is fabricating
parts of the project or materials needed for the
installation such as stencils, funds will need to be
allocated for materials in addition to the design and
management fee.
FUNDRaISING
If your project is not fully funded from the start, a
fundraising plan will need to be developed. Every
member of the project team should participate in
brainstorming funding sources. Consider approaching
multiple funding sources with interests in the different
aspects of these types of projects. For example,
asphalt art projects are appealing to corporations and
foundations that support placemaking, community
8180
Each year, Mural arts Philadelphia hires different artists
to design and install a mural at the Eakins Oval. (Case study on page 31)
Summer Kaleidoscope mural by Jessie and Katey. Photo by Steve Weinik
development, public art, walkability, and community
health. Other funders may be interested in the content
of the artwork. For example, a project with natural
and environmental content may be of interest to
funders with an interest in those areas. Utility boxes
wrapped with community photographs may be of
interest to a funder who supports photography or
journalism. It is also important to research foundations,
corporations, and individuals who support the
geographic area where your project is located.
When you involve artists in your project, you may
become eligible to apply for funds from local and
state arts councils. Larger-scale projects with ample
time frames could apply to the National Endowment
for the arts.
Inquire if your municipal or county public works
department could fund the project with capital
construction dollars. If government capital funds are not
available, government support could also come in the
form of allocations from local or state elected officials.
be sure to meet with representatives from their offices
to discuss other grant programs for which your project
may be eligible. Small budgets could be covered or
small gaps in larger projects could be bridged through
an individual contribution campaign or crowd sourcing.
Finally, city departments and community organizations
commonly work with fiscal sponsors to accept funding
and facilitate contractual relationships. Fiscal sponsors
are nonprofit organizations that provide their legal and
tax-exempt status to other organizations in furtherance
of charitable and civic goals and projects. It is important
to determine whether the city or community partners
will need a fiscal sponsor to accept funding, hold
contracts, or facilitate other aspects of the project.
82
TO
O
L
S
&
T
aCTI
C
S
:
D
E
S
I
G
N
D
E
V
E
L
O
P
M
E
N
T
Design
Development
aRTIST & aRT SELECTION
Some of the projects included in this Guide were
produced by ongoing arts programs with established
methods for choosing artists and design professionals.
If you are not collaborating with an ongoing program
on your project, methods for artist selection include:
• Open call process by request for proposals
or request for qualifications
• Invitational where a small group of artists
are pre-qualified for the project
• Directly approaching a specific designer
for a proposal
• Utilizing an in-house designer or other
creative member of the project team
How the art is chosen is important to consider.
Selecting the art will require care and expertise
to run a process that is fair, sensitive to relevant
communities, and will ensure a final product of high
artistic quality. In order to execute an efficient and
effective artist selection and engagement process,
cities should consider working with an experienced
arts administrator to oversee the artist selection
process and to coordinate participating artists, such as
in the Same Same, but Different project in Pittsburgh
(page 27). If there is a request for proposals, the arts
administrator could coordinate a jury of community
members and/or arts professionals who can judge the
artistic quality, feasibility, and community relevance
of the proposals. Otherwise, selection may be led
internally by the project team, but should enlist input
from visual arts and design professionals and local
8382
The butterfly mural in asheville underwent
several rounds of design review. The first step
was meeting with the community to choose a
location for the mural. The project team then
worked with artist Jenny Faires to translate the
initial sketches into an implementable design.
The design drawing shown above was used
by the team during the painting process.
(Case study on page 25)
aerial photo by Justin Mitchell
Drawing and additional photos
by Street Plans Collaborative
community members. In some cases, other selection
models have been employed, such as in the Walks
of Life mural in West Palm beach (page 17), in which
students at a nearby art school voted on several
design options created by their peers with professional
coaching from Street Plans.
In some selection processes, cities select a handful
of finalists and request that they develop their design
concepts beyond their initial proposals. Note that best
practice is to offer compensation for additional design
development even if the artists are not selected for the
project. Once the winning artist is chosen, they must be
given a contract to continue working on the project.
84
TO
O
L
S
&
T
aCTI
C
S
:
D
E
S
I
G
N
D
E
V
E
L
O
P
M
E
N
T
CONTRaCTS & LEGaL aGREEMENTS
Unless you are working with an in-house designer to implement the project,
you will need a contract. Most likely you will be working with an artist,
designer, or other creative collective who should be paid for their work.
The contract should outline all of the expectations for products, services,
responsibilities, payments, ownership of the physical project, ownership of
the copyright, liability insurance, maintenance, life span, and more. For the
design and implementation of the project, the contract will likely engage
the entity who owns the site, the entities implementing the project, and the
entity who will own the project.
For projects on public property, work with your local planning, public
works, or transportation department to see if other agreements will need
to be put into place. For example, on public property, the government
entity that owns the site may need to execute an agreement with the entity
implementing the project to legally access the project site (see the Miami
Dominoes project on page 61).
Your local government arts agency, public art program, or arts council will
likely have a public art contract to adapt for the project. If you are starting
from scratch or if you are an artist initiating a project, two good resources
are Sarah Connelly Odenkirk’s A Surprisingly Interesting Book About
Contracts: For Artists and Other Creatives (2014, aMMO books) or the
americans for the arts’ Public art Network (publicartnetwork.org).
If you are seeking outside resources from a local, state, federal, or private
entity, there will also likely be a contract to accept and distribute the funds.
Note that artists will retain the copyright of their work unless the project
is specifically designated as a work-for-hire. The artist and commissioning
organization can agree on how images of the artwork will be used
and credited.
8584
TO
O
L
S
&
T
aCTI
C
S
:
D
E
S
I
G
N
D
E
V
E
L
O
P
M
E
N
T
PERMITS
Depending on the jurisdiction of the project and the entity leading the project,
a permit may be required. These permits will allow the project team to occupy
and use the right of way temporarily during the installation and ensure that
safety and mobility won’t be compromised.
Some common requirements for submitting permits include:
• Description of the project and a detailed installation plan
• List of materials
• Traffic control plan if the project will occur in the right of way
• Proof of liability insurance, typically naming the site owner and
other project partners as additionally insured on the certificate.
This is typically a special event coverage for the installation.
• approval from all or a percentage of property owners adjacent
to the installation site
• Site use agreement outlining the responsibilities of all parties
involved in relation to ownership, maintenance, and removal
For information on model legal agreements, permits, and insurance, see
asphaltart.bloomberg.org.
COMMUNITY ENGaGEMENT & DESIGN REVIEW
Whether the project is being designed in-house (by members of the project
team) or by contracted artists, developing a design with the community
will require ongoing communications and meetings. Key members of the
community should be a part of the core project team. Either the city or a lead
nonprofit organization should convene a public meeting to discuss the site
and preliminary design considerations. The team artist or designer should
participate and might even co-lead this meeting. Following this meeting, the
artist or designer should develop draft concepts for review by the project
team. This offers the team the chance to share feedback about the content and
the materials in a constructive environment and provides the artist or designer
with enough time to evolve their concept as they respond to the feedback.
Work with the artist or designer to develop a realistic timeline for revisions,
and adjust the project schedule accordingly.
Once the design has been reviewed internally, it should be shared with the
public at large at a community event in addition to any other reviews required
of your project by community, art commission, design commission, site owner,
traffic engineer, or other entities.
Ongoing regular meetings with the community and continued in-person
outreach where designs are shared with both municipal partners and
community members are critical factors in developing an authentic and
informed design.
This mural at the Pittsburgh airport was installed using runway-grade thermoplastic, a
material that is engineered to last longer than other paint applications. This ensures the
longevity of the project and reduces its maintenance costs. (Case study on page 27)
Same Same but Different mural by ann Lewis. Photo by Pittsburgh International airport
86
TO
O
L
S
&
T
aCTI
C
S
DESIGN PROCESS & STaNDaRDS
Several factors go into a successful and beautiful
design. The first driver of a design should be the
identity of the surrounding neighborhood, cultural
characteristics, and diversity of the community. This
may mean looking to local architectural or cultural
traditions for inspiration or to the natural world.
For example, the design of Plaza Rue Vendome on page
47 was inspired by the local art deco architecture that is
prevalent in Miami beach. The design team made three
potential designs and brought them to the public at a
community workshop to vote on the design.
another factor in the design process should be
consideration of how the project will be implemented.
Designers must find a balance between the complexity
of a proposal and how difficult it will be to implement.
This depends in large part on the resources available
for things like paid contractor labor and stencils or if the
project will be implemented with volunteer help.
8786
TO
O
L
S
&
T
aCTI
C
S
:
D
E
S
I
G
N
D
E
V
E
L
O
P
M
E
N
T
2 “ Interpretation Letter 3(09)-24(I) –
application of Colored Pavement”
Memorandum, U.S. Department of
Transportation Federal Highway
administration, august 15, 2013.
The first driver of
a design should
be the identity
of the surrounding
neighborhood
fabric.
Scale is also an important consideration in the design process. Consider
how the project will be viewed and what the experience of a pedestrian
will be when walking over the mural. Some designs look great as a drawing
on an 8.5" x 11" paper, but do not translate to full scale. Similarly, some
street murals look great in photos taken from a helicopter, but may be hard
to decipher when standing directly on them. Using repetitive patterns and
solid background colors may help create a design that can be appreciated
from multiple angles and distances.
For projects that impact the layout of the street, the design may need
to be submitted for approval to the city’s or other government entity’s
traffic engineering department. No single national standard exists for art
in the right of way. While the Manual of Uniform Traffic Devices (MUTCD)
is the document that traffic engineers use to guide the use of pavement
markings and paint colors, art on the street is not considered a traffic
control device and thus is not regulated by MUTCD. However, where art is
used as part of a striped crosswalk, the Federal Highway administration has
provided some guidance: “subdued-colored aesthetic treatments between
the legally marked transverse crosswalk lines are permissible provided that
they are devoid of retroreflective properties and that they do not diminish
the effectiveness of the legally required white transverse pavement markings
used to establish the crosswalk.”2
Every city solves for approval differently based on local context. For example,
some cities, such as Houston, allow for any combination of colors, symbols,
and words, as long as they occur within the white transverse crosswalk
lines. Other communities use the volume of cars or character of a street
as a determinant of what is allowed. an engineer may allow for a brightly
colored installation on a low-volume residential street, while being more
restrictive on a higher-volume, suburban location.
Some city engineers may provide more specific color or pattern
recommendations about what they find acceptable, while others might
have a more flexible interpretation of the guidelines. The important thing
is to have open communication with the approving traffic engineer to
translate the community vision into an approved plan.
asphalt art projects, particularly murals, are generally not considered
advertising as long as they do not incorporate commercially recognizable
symbols or draw attention to a product, activity, or service. The inclusion
of logos or commercial symbols and characters may be subject to
regulation as a sign or advertising in certain jurisdictions and thus should
be avoided. be sure to check the local sign ordinance to verify any
additional regulations.
For Rue Vendome, a specialized street paint
was used that is meant for pedestrian spaces.
The paint supplier flew to Miami beach to
train the city and project team in the application,
while the city worked with existing contracts
for other items like planters and chairs.
(Case study on page 47)
Photos by the Street Plans Collaborative
88
TO
O
L
S
&
T
aCTI
C
S
:
D
E
S
I
G
N
D
E
V
E
L
O
P
M
E
N
T
PLaNNING FOR LONGEVITY
before developing a design and implementing the
project, decide how long the project will last, if it will
be allowed to fade, if it will be maintained, or if it will
be replaced by another project after a predetermined
amount of time. In addition, decide who will be doing
the hands-on work of maintenance and removal.
Options include the artist or designer, the site owner or
manager, city staff, or community volunteers.
It is important to make this decision in the planning
stages, since these factors impact the choice of
materials, content, and qualifications of an outside artist
or designer. For example:
• an asphalt art project with a one-season life span
will require a material easy to remove with a power
washer. It may also be a good opportunity for
project teams working on this scale for the first time.
• a project with a multiple-year life span that will not
be maintained will require sturdier materials and
a design with continued aesthetic appeal as the
project becomes worn by pedestrian, bike, and
vehicular traffic.
• asphalt art projects that will be maintained will
require materials, design, and a project site
appropriate for the reapplication of materials.
• artwork meant for spaces that will be eventually
driven on will fade much more quickly than artwork
on pedestrian-only spaces.
MaTERIaLS & SITE CONSIDERaTIONS
When it comes to materials, each project will require a
different selection. Materials will vary depending on the
project’s desired use and duration. For most projects,
local government entities will also require the selected
paint to be mixed with a non-slip additive such as Shark
Grip® to avoid surfaces from becoming slippery once
the installation is in place. below is a list of common
products used for asphalt art projects that range from
very temporary to more permanent:
• Tempera paint
• Water-based field-marking paint
• Latex or acrylic household paint
• acrylic traffic marking paint
(Roadzilla® MMa, Rustoleum®)
• Epoxy-based pavement coating
• Thermoplastic (TrafficPatterns®, DuraTherm®,
DecoMark®)
To ensure the paint’s durability or to extend its life,
you may also consider the following methods:
• Power wash and clean the site from any debris
the day before or a few hours before the
installation begins
• apply a primer coat prior to the artwork installation
8988
TO
O
L
S
&
T
aCTI
C
S
:
D
E
S
I
G
N
D
E
V
E
L
O
P
M
E
N
T
• apply a sealant once the artwork has cured or, in
the case of vertical infrastructure murals, apply
anti-graffiti coating. Some projects in this guide
have used products like Graf-X Wb anti-graffiti
coating and Clear Shield anti-graffiti coating.
• Make sure the artwork area is completely closed
off to vehicles and foot traffic until the paint has
completely dried
• If using light colors, consider applying a white
base coat
• Freshly paved areas will absorb more paint. Make
sure to account for extra layers of paint if painting
over a recently paved surface.
• Consider testing a range of installation tools before
purchasing them and making sure the installation
crew or volunteers receive proper training to ensure
the application process matches your expectations
• If using stencils, make sure they are cleaned
before reusing to avoid damaging other parts
of the project
• Set up a workstation that will hold all of your
painting materials in one place by covering the
surface with a large tarp. This will ensure that
your working area remains clean even if some
paint spills.
• Some cities utilize materials that combat particular
environmental challenges. For example, innovative
new paving materials have been developed
to mitigate rising urban temperatures. “Cool
pavements” come in a variety of forms, from a
coating on street surfaces that increases the solar
reflectivity to entirely new, permeable concrete
that can absorb water, which later evaporates and
cools the surrounding area.
CONNECT WITH SUPPLIERS & MaNUFaCTURERS
The people who make and distribute products will
have information to share about application methods,
curing time, reaction with different temperatures and
materials, maintenance, and removal. Much of this
information can be found on material spec sheets/cut
sheets. They may even be willing to participate in the
application. ask for color samples and examples of
where the product has been used, giving you a chance
to follow up with questions. Share this information with
the entire project team, including the artist or designer
developing the project. They may consider design
adjustments based on how the product performs. In
many cases, designs may have to be changed based on
available colors.
PROCUREMENT
One challenging part of asphalt art projects can
be the procurement of materials. Many cities have
procurement rules that prescribe specific brands or
materials or require a minimum number of bids when
the cost a material exceeds a certain threshold. If the
project is being led by a city, they may be able to
work within these rules by breaking material orders
into smaller increments that fall below procurement
thresholds or they may include the material costs within
a larger contract with an on-call vendor. Depending on
the source of funding, the city may consider offering
a grant to a local community organization to procure
materials or the city and community group may work
together to pool resources. The city may also have
some types of paint stock that can be used
in conjunction with materials procured by others.
TESTING MaTERIaLS & TRaINING CREW
Unless the artist, designer, or your community has
extensive experience working with a specific material
on your project surface, it is wise to test materials ahead
of time. It is also a good idea to test the application
of the materials with the tools you will be using.
additionally, set aside time to train your installation
crew if they are not yet familiar with the materials
or application process. The test should approximate
the pavement conditions as closely as possible — and
also use this as an opportunity to test paint removal.
Spending an hour testing now can keep you from
making costly mistakes later.
For Lincoln Hub, the project team used an
epoxy traffic paint that is durable enough to be
driven over, but can also be used for pedestrian
spaces like curb extensions and sidewalks.
This paint was intended to last 3 years, but
has lasted several years longer with a yearly
application of sealant. (Case study on page 37)
Photo by Lakeview Chamber of Commerce
90
TO
O
L
S
&
T
aCTI
C
S
:
E
N
G
aGIN
G
T
H
E
C
O
M
M
U
N
I
T
Y
Engaging the
Community
For all projects, whether undertaken by city
departments, local organizations, or neighborhood
groups, community engagement tools can include
the following:
• Door-to-door outreach
• Handing out flyers and creating educational signage
• Public meetings for presenting the project idea and
design options
• allowing the community to vote on the design
or be involved in the review process
• Inviting locals to become volunteers during
the installation and participate in the creation
of the artwork
• Engaging local businesses or institutions such as
schools and art organizations to become part
of the project team
There are many opportunities to involve community
members in the process of asphalt art projects. It is a
best practice to inform and engage people who are
physically or conceptually connected to a site’s location
through live, work, play, and interest. Having a variety
of engagement strategies will increase the diversity and
number of participants as well as support for the project.
Not everyone has the time or ability to attend a public
meeting, but they might have time to attend a free
event where they can see the design and meet the
design team or artists. Transportation, time of day,
language spoken, cost, and daycare are common
barriers to participation. The project team can develop
solutions to remove barriers to participation in
your community. For communities with little public
participation, building awareness of the process is a way
to increase community enthusiasm for future projects.
Making the effort to widely engage the community is a
strategy to build broad support for the arts.
9190
In Tucson, the Living Streets alliance worked as
a liaison between the city and the community.
They handled community outreach both
during the design development phase and
handled volunteer management during the
installation event. (Case study on page 35)
Photo by Taylor Miller
• Purchasing materials and supplies from
local businesses
• Hosting a celebration party once the installation
is complete
• building an ongoing program for activating the
space with community events
• Conducting pre- and post-installation surveys
to evaluate the community’s expectations and
receptiveness to the project
92
TO
O
L
S
&
T
aCTI
C
S
:
I
M
P
L
E
M
E
N
T
I
N
G
T
H
E
P
R
O
J
E
C
T
Implementing
the Project
MaTERIaLS STORaGE
Project teams should secure materials and place them
in storage at least a few weeks before the installation
begins. Consider longer lead times for custom or large
orders of paint and think about the size of any stencils
or other equipment needed for install. Work with a local
business or public facility near the project site to store
supplies, materials, and personal belongings prior to
and during the installation. If a space is not available,
you can rent a portable storage locker for the site.
CONSTRUCTION DOCUMENTS
asphalt art projects are guided by a set of construction
documents that describe both the final design and
the traffic control needed to implement them. These
documents will allow the project leaders to instruct the
on-site crew and volunteers and include instructions for
how to lay out the design, dimensions of the site, and
other important design measurements as well as a
color key.
9392
TO
O
L
S
&
T
a
C
T
I
C
S
:
P
R
O
J
E
C
T
I
N
I
T
I
a
T
I
O
N
Significant planning and detail go into the
implementation of asphalt art projects. This
design document was used to lay out the
mural for Rue Vendome in Miami beach.
(Case study on page 47)
Photo by andrea Lorena
94
TO
O
L
S
&
T
aCTI
C
S
9594
TO
O
L
S
&
T
aCTI
C
S
:
I
M
P
L
E
M
E
N
T
I
N
G
T
H
E
P
R
O
J
E
C
T
SITE SaFETY & TRaFFIC CONTROL
Everyone on site producing the project will benefit from having a safe,
secure, and comfortable place to work. Long days in the summer sun
painting a mural on the street are physically challenging, and dehydration
and heat stroke are a risk. Make sure that you have water, food, bathrooms,
seating, and shade structures available to everyone during the installation
so that the experience is safe and enjoyable.
another part of project implementation involves traffic control. If the project
will be installed on the right of way or will require a temporary detour of
traffic, you will need a traffic control plan. The plans will show the area to
be closed off to vehicles and a temporary plan for how to guide road users
through the work zone with traffic control devices. This document will
ultimately ensure the safety of all crew and volunteers moving through the
installation site. It is always helpful to plan the installation during hours with
low traffic volume and to allow time for the artwork to dry before the road
is driven on again.
To ensure the public is aware that the project happening is a sanctioned
activity, install temporary signage describing the project. be sure to
train volunteers in case they are questioned by community members
not familiar with the project and keep copies of permits on site in case
they are needed.
DOCUMENTaTION
It is important to have professional-quality documentation of the
project. Many teams draft documentation plans that describe the types
of documentation needed of both the installation process as well as of
the completed project. Consider bird’s-eye locations for before/after
shots taken from adjacent buildings; aerial drones may be very useful in
documenting these projects. also consider getting action shots of the
project being installed on the build day.
The documentation produced will be a helpful reference for maintaining
and reapplying the project and will provide examples to show other
communities who are interested in the work. Photos may also be needed for
grant reports and will be the only way to show the history of what is usually
a temporary project. In addition, proper documentation can also serve as a
tool to visually showcase the project’s success and will help cities or other
project stakeholders defend their asphalt art projects or advocate for new
ones. be sure to share the documentation with the artist/designer who
developed the content of the project.
Traffic control for the Walks of Life project in West Palm beach
was provided by the city’s Engineering Department.
(Case study on page 17)
Photo by Maxwell Zengage
96
TO
O
L
S
&
T
aCTI
C
S
:
M
aINT
E
N
aNCE
&
S
T
E
W
aRDS
H
I
P
Maintenance
& Stewardship
PROGRaMMING & aCTIVaTION
For projects that seek to use asphalt art to create
pedestrian spaces or plazas, activating the project
site with programming and events will help ensure
the project’s longevity. It is important to build a
robust program around a newly created public space
for the project to grow on the community and for the
space to become a celebrated and stewarded
neighborhood spot.
One way to host successful events and create traditions
around a space is by partnering with local art or cultural
organizations that specialize in event production and
have the necessary expertise to plan activities that
celebrate the creative reclamation of public space
(see Rue Vendome project on page 47). From markets
and live music to children’s games and community-
building activities, these organizations will likely know
which entities to involve in event planning and program
building and how to engage locals from across
your community.
PROJECT aDJUSTMENTS OR REPLaCEMENT
Note that some projects may require adjustments if
the results are not performing as intended or if the
installation has unexpected outcomes. These changes
may include readjusting the size or boundary of the
design or changing the design’s overall geometry.
If a project will be replaced with a different design
in the future, the artist’s or designer’s contract must
outline the predetermined life span. Plans also need to
be made to prepare the surface for the next project.
This is the responsibility of the site owner or entity
managing the project.
9796
MaINTENaNCE
If the project will be maintained by someone other
than the artist or designer, the artist or designer can
help develop a maintenance manual that includes the
following information:
• Images of the original project
• Description of how much fading and
wear are expected
• Detailed descriptions of each material used in the
project, including exact colors
• application instructions for each material
• List of equipment and tools needed for application
• Tips from the artist or designer about the site
and materials
Once the Sexapus mural was completed in Montreal, the City of
Montreal hosted events and activities that were crucial for creating
community buy-in for the project to transition from an interim pilot
project to a permanent shared street. (Case study on page 29)
Sexapus mural by Peter Gibson. Photo by Melanie Dusseault
The entity managing the project or the owner of
the project will need to organize the permits, street
closures, and other steps to ensure the project can be
maintained. Proper maintenance will always require a
plan and budget. Costs for materials, labor, permits,
street closures, and other needs should be included
in the project budget, and a new budget should be
developed for ongoing maintenance.
98
TO
O
L
S
&
T
aCTI
C
S
:
M
aINT
E
N
aNCE
&
S
T
E
W
aRDS
H
I
P
STEWaRDSHIP
Spaces that reflect a sense of community ownership
and stewardship, especially those that encourage
individuals to actively engage in social behavior,
usually generate a greater place attachment among
visitors. Involving the community in the planning and
design stages of the project can create a space that is
conducive to social gatherings and can adapt to and
support the communities they serve.
Public space enhancement projects and programs
are a benefit to the community and should be
maintained accordingly. an effective stewardship
model can be created through cooperative agreements
made between municipal agencies and private
entities to maintain public space projects with help
from the local community. These agreements should
include a written understanding outlining duties and
responsibilities of each party involved in the process
as well as a set of goals and recommendations for the
durability of the project.
The following recommendations can help your project
team play a leadership role in project management
and stewardship:
For community-led projects:
• Identify fiscal sponsorship resources that will help
fund your community project
• Find organizations that specialize in mobilizing
volunteers, managing clean up, landscaping, and
events such as Detroit’s Summer in the City or
Tucson’s Days of Caring
• Support the sharing of organizational knowledge
and practices among grassroots groups
• Designate funding for project maintenance in the
planning stages
For city-led projects and programs:
• Ensure that future public space policies and
programs emphasize maintenance needs
and identify the responsible parties
• Create a permit structure to allow community
groups to host a series of small-scale community
events in one public space site
• Consider creating an open-source guide for the
creation of asphalt art projects in your city
To complete the Underground at Ink block murals in boston,
development firm National Development worked hand in hand with
the Massachusetts Department of Transportation to test materials
and manage the planning and permitting of the highway underpass
murals. (Case study on page 63)
Photo by Marka27
9998
TO
O
L
S
&
T
a
C
T
I
C
S
:
P
R
O
J
E
C
T
I
N
I
T
I
a
T
I
O
N
100
TO
O
L
S
&
T
aCTI
C
S
:
P
R
O
J
E
C
T
E
V
aLUaTIO
N
Project
Evaluation
a key factor in measuring the success of asphalt art
projects is using data to quantify the impact of the
project, whether it is tied to mobility, walkability, or
general livability. Whether its measuring the speed of
vehicles, the perception of safety, or people’s likeliness
to use the space after the installation, this information
will help effectively communicate the intentions behind
any given project. In addition, any data collected along
with community input will allow the leading entity to
make better decisions when implementing similar
projects in the future and creating a streamlined
process for project approval, funding, and buy-in.
below are some metrics that can be used to measure
a project’s impact:
• Speed of vehicles before and after implementation
• Stop bar compliance
• Pedestrian crossing behavior
• Foot traffic counts
• Likeliness to use the intervened space before
and after implementation
• Perception of safety before and after
implementation
• amenity use before and after implementation
101100
TO
O
L
S
&
T
a
C
T
I
C
S
:
P
R
O
J
E
C
T
I
N
I
T
I
a
T
I
O
N
This project in Miami beach has ongoing
programming and events organized by third-party
organization Prism Creative Group.
(Case study on page 47)
Photo by andrea Lorena
Tools to collect data include surveys (either in person
or online), speed guns, counting machines, digital
counters, or other data collection methods. Data-driven
evaluation will allow project teams to justify their
project and demonstrate its impact, and ultimately lead
to a more effective approach for implementing asphalt
art projects. See the Corbett Porch case study on page
35 for an example of project metrics.
102
TO
O
L
S
&
T
aCTI
C
S
To guarantee the longevity of the murals created for the StreetartToronto Program, each utility box
is primed before artists arrived and coated with anti-tagging material by Goodbye Graffiti,
the city’s graffiti management contractor, once the mural is completed. (Case study on page 55)
Colorful Horizon mural by Yasaman Mehrsa. Photo by Jocelyn Renyolds
102
For other resources and recommendations,
including contacts from each of the case studies,
please visit asphaltart.bloomberg.org
104104
aS
P
H
a
L
T
a
R
T
G
U
I
D
E
Memo
Date: March 12, 2024
From: Scott A. Fleury
To: Transportation Advisory Committee RE: Distracted Driving Resolutions BACKGROUND: Before the Transportation Advisory Committee is a discussion about recommending the City
Council pass a distracted driving resolution. The draft resolution is attached for review. April 2024 is Distracted Driving Month. From the National Transportation Safety Board:
Distracted driving has become a deadly epidemic on our roads. Cell phone use — specifically, texting, talking, and social media use — has become the most common distraction. Other risky actions include adjusting the radio or GPS, applying makeup, eating and drinking. By driving distracted, you’re robbing yourself of seconds that you may need to avoid a close call or deadly crash. CONCLUSION: Action required, discuss attached draft resolution and recommendation to forward on to City Council for approval at the April 2, 2024 Business Meeting.
RESOLUTION NO. 2024 - XX
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF ASHLAND,
OREGON DECLARING THE MONTH OF APRIL – DISTRACTED DRIVER
AWARENESS MONTH
RECITALS:
A. The Council adopted Resolution 2024-05 supporting Vision Zero.
B. The safety of the city’s streets and the safety of residents and visitors to Ashland are among the
City Council’s top priorities.
C. According to a study released by the National Highway Traffic Safety Administration (NHTSA)
and the Virginia Tech Transportation Institute (VTTI), 80 percent of collisions and 65 percent of
near collisions involve some form of driver distraction.
D. Local collisions statistics show that approximately 80 percent of local street crashes involve a
vehicle driver colliding with a fixed object (a parked vehicle, curb, tree, light post, etc); likely
attributable to distracted driving.
E. The NHTSA defines "distracted driving" as any non-driving activity a person engages in while
operating a motor vehicle. Such distractions endanger drivers, passengers, people walking or riding
a bicycle, using a wheelchair or other mobility device; and
F. Engaging in activities such as talking on a phone, texting, checking social media or email,
selecting music, or other uses of portable devices while driving increase the risk of a crash by three
times; and
G. Text messaging, which requires visual, manual, and cognitive attention from the driver, is by far
the riskiest and alarming of distractions; and
H. Distracted driving is a serious, life-threatening practice that is preventable; and
I. Distracted driving has been shown to lead to death and life-altering injuries for those involved in
crash caused by distracted driving, and
J. In order to reduce the number of crashes as well as improve driver safety, all motorists should
dedicate themselves to adopting and maintaining safe behavior while behind the wheel.
THE CITY OF ASHLAND RESOLVES AS FOLLOWS:
SECTION 1.
The Ashland City Council does hereby proclaim APRIL 2024 as DISTRACTED DRIVING
AWARENESS MONTH and calls this observance to the attention of all residents and encourages
increased awareness of the dangers of distracted driving.
SECTION 2. T
The Council asks residents and visitors to refrain from the following behaviors while driving:
○ Eyes off the road (visual).
○ Mind off the road (cognitive).
○ Hands off the steering wheel (manual)
SECTION 3. This Resolution takes effect upon signing by the Mayor. This resolution was duly
PASSED and ADOPTED this day of April, 2024.
Alissa Kolodzinski, City Recorder SIGNED and APPROVED this day of April 2024. Reviewed as to form:
Douglas McGeary, City Attorney
Tonya Graham, Mayor
Memo
Date: March 12, 2024
From: Scott A. Fleury
To: Transportation Advisory Committee RE: Planning Commission Study Session BACKGROUND: The Planning Commission is looking to utilize study sessions to discuss comprehensive plan
elements and long-range planning efforts underway with stakeholders (committees, etc.). Brandon Goldman, Community Development Director has reached out to Public Works staff to determine interest regarding two (2) members of the TAC and PW staff attending a Planning Commission Study Session (April 23, 2024) to discuss Transportation System projects, planning efforts, issues, concerns and workplan related items the TAC is focused on moving
forward. Staff has attached the Transportation Element section of the Comprehensive Plan for reference. Staff has also attached the TACs workplan for reference as well. CONCLUSION: Action required, discuss attendance at Planning Commission meeting to present and discuss transportation related elements the TAC is and will be involved in moving forward.
Transportation Safety and Multimodal Advisory Committee
Work Plan 2023-25
I.Transportation System Plan Update
A.Vision Zero Resolution and Action Plan
II.Capital Improvement Projects(Protected Bike Lanes/Multimodal Analysis)
A.Ashland Street Rehab
B.North Mountain Rehab
C.B Street Bike Boulevard
1.Safety Analysis
2.Design
D.Oak Street Rehabilitation
III.Traffic Safety,Parking,Signage,Striping,etc.–Continuous
A.Public Education and Outreach Program
1.Collaboration with Council,CEPAC,Housing Committee and Planning
Commission
B.Traffic Calming Program
C.Traffic Crash and Near Miss Review (twice annually)
D.Bike Parking Inventory (downtown)
E.Transit Support as needed (RVTD)
IV.Council Directed Projects for Review
A.Bird Scooter Program Review
B.Parklet Program Review
C.Downtown Revitalization Grants
D.ODOT Collaboration
2 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 3
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
10.01 Introduction
This is a planning concept that does not necessarily
imply equal financial commitment or equal percent-
age use of each mode, but rather ensures that we will
have the opportunity to conveniently and safely use
the transportation mode of our choice, and allow us
to move towards a less auto-dependent community.
Ashland has a vision—to retain our small-town char-
acter even while we grow. To achieve this vision, we
must proactively plan for a transportation system that
is integrated into the community and enhances Ash-
landʼs livability, character and natural environment.
That is the goal of this Transportation Element.
The concept of “modal equity,” or the equal oppor-
tunity to use all modes of travel, is an integral part
of realizing this vision. Whether Ashland residents
and visitors travel by foot, bicycle, public transit or
automobile, we must have a well-designed, integrated
network that is convenient to use. The focus must be
on people being able to move easily through the city
in all modes of travel. Modal equity then is more than
just a phrase.
When people talk about their love of Ashland, being
able to walk many places and linger in public parks
and plazas inevitably gets discussed. The ability to
easily walk and bike is associated with higher levels
of livability for communities, and Ashland enjoys a
high ranking. But if Ashland is to retain and improve
the quality of life, we must rethink our efforts towards
transportation planning. Our past focus on accom-
modating the automobile must now be replaced by
concerted efforts toward equally accommodating all
modes of travel.
Ashland is a community, which prides itself on inno-
vation and pressing for positive change. The area of
transportation has been no exception. In 1990, com-
munity leaders formally began discussions involving
a need to change our transportation planning policies
from auto-oriented to multi-modal, and to clearly
recognize the connection between land use and trans-
portation. Shortly thereafter, federal and state legisla-
tion passed, which brought forward these same ideals
and required states and local governments to plan for
multi-modal transportation systems. Specifically, the
Oregon Transportation Planning Rule states as its pur-
pose “Through measures designed to reduce reliance
on the automobile, the rule is also intended to assure
that the planned transportation system supports a pat-
tern of travel and land use in urban areas which will
avoid the air pollution, traffic and livability problems
faced by other areas of the country.”
Indeed, the lessons learned from such cities as Los
Angeles and Seattle spearheaded the need for these
efforts. However, Oregon, and Ashland itself, has
The concept of
“modal equity,” or
the equal opportunity
to use all modes of
travel, is an integral
part of realizing this
vision.
2 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 3
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
not been immune from the increased impacts of the
automobile. The number of vehicle miles traveled
(VMT) in Oregon increased eight times faster than the
population from 1980to 1990. During the same time
period, vehicle miles traveled within Ashland grew
over four times faster than the population.
Clearly, the pronounced growth in VMT can be par-
tially attributed to the fact that cities are growing ever
larger in area. The density of the urban population
in the United States is decreasing as more sprawling
development occurs. The trend is clear—people have
to make more trips to destinations located far apart.
Ashland has followed a similar path, although to a
lesser degree. The private automobile is now the pre-
dominant travel choice for city residents, with nearly
all work, social and recreational trips using the car. If
we fail to alter these patterns, Ashland will experience
greatly increased traffic, and greater conflicts between
the automobile and other travel choices.
Past transportation planning efforts in Ashland
focused much of their attention on the accommoda-
tion of the single-occupant automobile, with the main
concentration being on creating a convenient auto-
mobile environment. It was believed that improved
livability would result from easier car movement,
but as we have experienced, the opposite has tended
to occur. And while minor portions of these plans
mentioned travel choices other than the auto, most
only considered the option of public transit. Since the
automobile figured prominently in these past plans,
the implementing measures and improvement plans
predictably centered around the car.
Incorporating modal equity in our current planning
efforts will allow a change in the way our streets are
defined. For too long, streets have exclusively been
the realm of the automobile. Pedestrians, bicyclists
and public transit users need our streets for their
travel just as drivers do. And we must recognize that
our streets are also part of our public spaces. Well-
designed streets, where people socialize and interact
as well as travel, are the key factors in the creation of
great neighborhoods.
But our planning efforts must involve more than
streets and travel modes. We know that land use
and transportation patterns are inextricably linked.
Ashlandʼs present and future transportation issues
can not be resolved without careful consideration
of the spatial relationship of homes, businesses and
schools, and how this relationship affects our daily
travel needs. While it would be unrealistic to try to rid
the city of automobiles, there are ways in which land
uses can be modified to improve the impacts on our
lives. Different uses such as homes, small businesses
Well designed streets,
shere people socialize
and interact as well
as travel, are the key
factors in the creation
of great neighbor-
hoods.
4 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 5
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
and schools should be mixed—a blend which would
shorten the distance between destinations and thereby
encourage the use of all modes of travel, not just the
single occupant automobile. Our land use planning
efforts must automatically include recognition of the
transportation impacts associated with development,
and we must consider all options as we continue to
grow as a community.
The purpose of this Transportation Element, then, is
to lay the groundwork for a new transportation/land
use planning paradigm and establish goals and poli-
cies to pave the way for this approach. Clearly, the
transportation and land use planning efforts of the
City directly affect the way Ashland develops.
As outlined in this element, the basis for Ashlandʼs
transportation and land use planning will involve a
balanced approach based on the concept of modal
equity. Allowing people to move easily through the
city by providing multiple, interconnected travel
options and retaining Ashlandʼs small-community
character and livability must be our goal. The focus
of the transportation system will not be limited to the
automobile, but in addition, transportation options
will be created where the number and length of trips
can be reduced, and walking, biking, and transit
become viable options for daily travel.
10.02 Previous Studies
A review of Ashlandʼs past transportation plans
enables us to better understand the current transpor-
tation system and it supplies information for future
work.
1966 COMPREHENSIVE PLAN (10.02.01)
Developed by the Bureau of Governmental Research
and Service, this plan dealt with Ashlandʼs future
transportation needs, including increased traffic flows
caused by new major streets and a new freeway inter-
change. This plan was based on a future population of
69,000 people. While it contained some well thought-
out policies, the plan was too broad and omitted cost-
effective solutions to the expected population growth.
This study is most useful as a historic reference point.
BEAR CREEK AREA TRANSPORTATION
STUDY (BCATS) (10.02.02)
This comprehensive study provided transportation
information for the Bear Creek Valley in 1965. It
included origin-destination studies, future traffic flow
predictions and transportation needs estimates, based
on data collected at that time.
Containing solid base data on driver behavior and
origin- destination information, this plan provides a
base from which to examine the changes in driving
habits during the last 30 years.
4 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 5
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
1978 COMPREHENSIVE PLAN (10.02.03)
Developed by the Ashland Planning Department in
accordance with the Land Conservation and Develop-
ment Commissionʼs (LCDC) goals and guidelines,
this plan dealt with improvements of traffic circula-
tion, bicycle and pedestrian traffic, and on and off
street parking. It did not project future traffic flows.
1981 COMPREHENSIVE PLAN (10.02.04)
The Transportation Element of this plan was prepared
by the Ashland Planning Department in accordance
with LCDC goals and guidelines. A relatively unso-
phisticated computer model predicted future traffic
flows through the year 2000.
Until now, this plan worked well within the confines
of the automobile-focused approach of the past. Now,
however, the limitations of a transportation system
that relies on the private automobile are evident and
the need to provide other travel options is clear. The
new Oregon Transportation Planning Rule requires
cities throughout the state to update comprehensive
plans and facilities plans to expedite the development
of local transportation systems which make alterna-
tive modes attractive and decrease private automobile
use.
10.03 Overview of Ashland’s Physi-
cal and Transportation Setting
Ashlandʼs location has historically governed local
transportation, patterns. A linear city, situated between
the Siskiyou Mountains to the south and Bear Creek/
Interstate 5 to the north, Ashland has relatively steep
terrain to the south of North Main Street- Siskiyou
Boulevard and more gentle slopes to the north of this
thoroughfare.
GROWTH (10.03.01)
Ashland has grown in a consistent pattern for the last
20 years, with population increases in general agree-
ment with the estimates of the Population Element of
the Comprehensive Plan. However, while population
growth has occurred as expected, traffic increase,
primarily in the number of vehicle trips on our streets,
have grown at a much faster rate. For example,
while Ashlandʼs population grew approximately
8.5% between 1980 and 1990, the number of vehicle
miles traveled (VMT) within the city increased by
approximately 39%. While some of this increase
can be attributed to tourists, it is apparent that local
residents, increasingly dependent on the automobile
for convenience, primarily account for the rising
figures. More children are driven to school than walk
or ride bicycles, more people drive to work alone than
...Ashlandʼs population
grew approximately
8.5% between 1980
and 1990, the number
of vehicle miles trav-
eled (VMT) within
the city increased by
approximately 39%.
6 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 7
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
share rides, and more people make separate shopping
excursions than combine them into a single linked
trip. Residential development beyond Ashlandʼs city
limits also affects the transportation system. The city
serves as a shopping/school/employment center for
rural southern Jackson County residents who center
many of their daily trips around Ashland. With ever-
increasing traffic levels, Ashland must ensure future
livability by reducing dependence on the automobile
and encouraging the use of other travel modes.
LAND USE PATTERNS (10.03.02)
Ashland is fortunate to have retained a relatively
compact urban form throughout its history. Despite
its linear configuration, most of the communityʼs
residential areas are well served by nearby commer-
cial service centers. The downtown core contains the
banks, the post office, restaurants, and other services
used by local residents. With distinctive stores and
restaurants, it is also a regional specialty shopping
center for the Southern Oregon/Northern California
region. The downtown core is also a tourist destina-
tion, as are Lithia Park and the Oregon Shakespeare
Festival. Exceptional transportation demands exist in
this area and create the cityʼs highest auto and pedes-
trian flows. The downtown core also experiences the
highest traffic congestion levels in Ashland.
Other commercial centers lie adjacent to Southern
Oregon State College and near the Interstate 5 free-
way interchange at Ashland Street. Multi-family and
single-family residential developments are located
throughout the city, with a large area of multi- family
development centered near the college. Most hillside
areas are committed to single-family detached hous-
ing units.
With the exception of the Railroad District, most
areas of Ashland have been characterized for years by
single-use zoning. Few areas exist with “mixed uses”
in which a blend of residences, offices, and retail ser-
vices is available. Separation of uses through single-
use zoning has resulted in residentsʼ need to drive
longer distances to work or for services. Compatible
mixed-use zoning would provide services in resi-
dential areas and offer housing in commercial areas.
These mixed uses would reduce both the number and
length of trips for goods and services.
TRAVEL PATTERNS (10.03.03)
Fortunately, Ashland is still a relatively small commu-
nity and many of the local shopping, school and ser-
vice trips are very short. The increase in vehicle miles
traveled over the last ten years, however, indicates an
ever-increasing number of these short convenience
trips.
6 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 7
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
Ashland has an unusual division of travel modes for
work- based trips compared to Jackson County and
Oregon, as the following table demonstrates.
As shown above, 33.1% of all work based trips use
some form of transport other than the single occupant
automobile, and 22.4% of all work trips do not use the
automobile at all. But while our travel habits, on aver-
age, indicate a higher use of the alternate modes than
the statewide average, the autoʼs use within Ashland
has risen between 1980 and 1990.
The number of drivers who commute to work alone
increased from 57.2% to 66.9% between 1980 and
1990. Fuel pricing is a major factor in this shift. In the
mid-1970s, fuel prices rose rapidly, forcing people to
travel more efficiently and to strongly consider other
options for travel. Public transit and car pools were
vigorously promoted during that decade. During the
1980s, however, fuel prices remained essentially con-
stant. With inflation factored in, fuel prices actually
declined in later years, reducing much of the impetus
toward economy, which characterized driver behavior
during the 1970s.
The following table also demonstrates the increase in
the number of people who work at home—a figure
that almost doubled during the 1980s. Increasingly,
many residentsʼ work trips involve traveling from one
portion of the house to the other. The growth of home
occupations in Ashland has both enhanced economic
development and decreased the number of work trips.
These patterns continue to substantially change our
transportation system.
Rural development outside the city limits has also
affected local transportation. Residents of these
lowdensity areas use city streets for shopping, work,
schools and entertainment. There are no easy solutions
to reduce these trips. Identifying ways in which a rural
lifestyle affects city dwellers and reducing develop-
ment in these areas will help alleviate those impacts.
Mode Oregon Jackson County Ashland
Drive Alone 73.3% 77.0% 66.9%
Car Pool 12.8% 11.3% 10.7%
Transit 3.4% 0.7% 1.1%
Walk 4.2% 3.8% 10.5%
Other 1.0% 1.1% 3.7%
Work at Home 4.3% 5.1% 7.1%
1990 Census
Mode Ashland 1990 Ashland 1980
Drive Alone 66.9% 57.2%
Car Pool 10.7% 18.1%
Transit 1.1% 1.4%
Walk 10.5% 14.6%
Other 3.7% 5.0%
Work at Home 7.1% 3.7%
1980 and 1990 Census
8 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 9
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
GENERAL TRANSPORTATION PROBLEMS
(10.03.04)
In comparison to metropolitan cities, Ashland has few
critical transportation problems. This situation could
change quickly, however, as it did during the 1980s.
Congested automobile travel areas are currently found
in Ashlandʼs downtown area, in the area near South-
ern Oregon State College, and on East Main Street
near the high school and middle school. Should our
reliance on the car continue at the present increasing
rates, many more congested areas will evolve.
Pedestrians have a relatively good sidewalk network
in the pre-World War II areas of Ashland and in most
of the recent subdivisions. The downtown commer-
cial core is well designed for pedestrians and offers
a welcoming walking environment. Because the
remainder of the community has developed without
sidewalks, pedestrians are forced to compete with
autos for space on many roadways. In some com-
mercial areas of the city, businesses serve drive-up
shoppers and make it difficult for those who choose to
walk.
Bicyclistsʼ difficulty in traveling through Ashland is
primarily due to a lack of safe, comfortable riding
areas. North Main Street through the downtown core,
and Siskiyou Boulevard between downtown and the
college, create major impediments to bicycle travel
through Ashland. Although efforts are being made to
remedy these problems, conditions remain difficult
for local bicyclists.
Public transportation is steadily improving in
Ashland. At present, 15-minute bus service is avail-
able along Siskiyou Boulevard almost the entire
length of the city, and a reduced fare program encour-
ages ridership. Unfortunately, public transit stops
are not currently well-sited and they lack necessary
amenities. As these stops and overall bus service are
improved within the city, ridership will continue to
steadily increase.
Transportation planning for Ashland is both complex
and critically important. This element of the Compre-
hensive Plan identifies important transportation issues
and addresses ways to solve future problems. This
Transportation Element considers and incorporates
various methods to accommodate traffic growth while
retaining Ashlandʼs character and livability. Through
the concept of modal equity, Ashland shall continue to
maintain its high level of livability and accommodate
the travel needs of our future populations.
10.04 Street Classification
INTRODUCTION (10.04.01)
To create a successful transportation plan for Ashland,
the interaction of transportation modes must be care-
8 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 9
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
Ashland streets must
provide convenient
transportation facilities
and a comfortable, safe
atmosphere.
fully studied. Whether people walk, drive, take the
bus or bicycle, most travel takes place on the cityʼs
street network.
Ashland streets must provide convenient transporta-
tion facilities and a comfortable, safe atmosphere.
Equal consideration of all travel modes requires more
than simply providing various physical travel areas.
Streets must facilitate pedestrian, transit and bicycle
traffic. The streetscape determines which transporta-
tion modes people use and affects the communityʼs
livability.
This section of the Transportation Element defines
the four major street types in Ashland - boulevard,
avenue, neighborhood collector and neighborhood
street. These classifications identify the character
and level of service to be emphasized on city streets.
In addition, a classification is included for multi-
use paths. Although not typically considered streets,
multi-use paths can serve as transportation links to the
street network for pedestrians and bicyclists.
The street classifications defined in this section are
used throughout this document and on the Transporta-
tion System Map (page 9) showing Ashlandʼs future
transportation system. Preceding the street classifica-
tions are the following definitions of frequently used
transportation terms.
DEFINITIONS (10.04.02)
Bikeways—A bikeway is any road, path or way open
to bicycle travel. All streets in Ashland are considered
bikeways. The facilities can be a portion of the road-
way designated for the preferential use of bicycles
such as a bike lane, shared with other transportation
modes, or an off-road path. Bikeways must provide
direct, continuous courses accessing commercial
areas, activity centers and schools. Bikeways must
provide safe and convenient bicycle travel and be free
of unnecessary delays.
Walkways—Walkways provide a circulation network,
a meeting place for neighbors, a play area for chil-
dren, a leisure area and an exercise place. Walkways
are intended to provide safe, attractive and convenient
facilities for people traveling on foot and by wheel-
chair. Walkways are adjacent to streets and although
usually in sidewalk form, may occasionally be off-
road paths.
Protected Crossings—Protected crossings are pedes-
trian crossings designed to minimize crossing dis-
tance and provide pedestrians with the safest, direct
route across streets shared with other modes of travel.
Curb extensions, pedestrian refuges, raised cross-
walks, marked crosswalks, landscape strips, street
trees, onstreet parking and traffic signals are design
elements used to achieve this effect.
10 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 11
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
10 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 11
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
Regional Transit Route—Regional transit routes
provide transit service between cities in the Rogue
Valley.
10.05 Street Classification
Guidelines
BOULEVARD (ARTERIAL) (10.05.01)
Boulevards provide access to major urban activ-
ity centers for pedestrians, bicyclists, transit users
and motor vehicle users, and provide connections to
regional traffic ways such as Interstate 5. The engi-
neering term for this type of street is arterial. North
Main Street and Siskiyou Boulevard are examples of
boulevards.
On an average day 8,000 to 30,000 motor vehicle
trips are made on a typical boulevard. Pedestrian,
bicycle and transit travel can be difficult and uncom-
fortable if the street is not designed to buffer non-
auto users. To restore balance pedestrian, bicycle
and public transit facilities should be emphasized on
boulevards. Traffic without a destination in Ashland
should be encouraged to use regional traffic ways and
discouraged from using boulevards.
As major thoroughfares, boulevards are busy. They
should provide an environment where walking,
bicycling and motor vehicle travel are equally conve-
nient. Design should facilitate the boulevardʼs use as
a public space where people can comfortably wait for
the bus or rest on a bench.
Land Use
A) Mixed-use development should be encouraged
along boulevards.
B) Multi-family development should be encouraged
in close proximity to boulevards so that a variety
of transportation options are available.
C) Direct and convenient bicycle and pedestrian
access between land uses should be emphasized.
D) Schools, commercial areas, transit stop employ-
ment areas and parks should be accessible by
bikeways and walkways.
E) A high concentration of homes and/or jobs within
walking distance (one-quarter to one-half mile) of
transit services should be encouraged.
F) A mix of land uses should be encouraged within
easy walking distance of a transit stop to reduce
the number of separate trips. The types of land
uses should be those which public transit riders
can readily use.
12 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 13
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
G) Commercial and recreational development such as
shopping centers, entertainment centers museums
and stadiums, which attract trips throughout or
beyond Ashland, should be encouraged to locate
along boulevards and be accessible by regional
transit routes.
Design
A) Boulevard design should balance safe, attractive
and direct walkways and bikeways with an effi-
cient motor vehicle thoroughfare.
B) Commercial buildings should be oriented to the
street with the main entrance facing the bikeway
and walkway. Convenient bicycle parking should
be located near the main entrance.
C) Landscaped medians and park rows offer a visual
sense of entry into the community and provide
pedestrians with a traffic buffer. Amenities such as
benches, shade trees, bathrooms and water foun-
tains should be pro- vided to accommodate pedes-
trians and bicyclists.
D) Protected (pedestrian) crossings should be pro-
vided along boulevards at a minimum of every
three blocks or approximately 1,000 feet.
E) Where two boulevards intersect, a boulevard and
an avenue intersect or in high traffic areas, a pro-
tected crossing should be provided.
F) Signaled intersections involving boulevards
should be designed to allow safe and easy move-
ment of bicycles. Signal triggering devices that
can be activated by bicycles should be designated
on the roadway. Intersections involving bicycle
lanes should be designed to minimize conflicts,
such as turning movements, and to provide ade-
quate bicycle crossings.
G) Bicycle lanes should be provided on boulevards.
Bike lanes should be separated from motor vehi-
cle lanes by an eight-inch solid white line and be
well marked.
H) All boulevards should provide a smooth riding
surface for bicycles. Drainage grates, abrupt edges
in pavement and debris make bicycle travel dif-
ficult and unsafe.
I) Boulevard and railroad crossing intersections
should be designed to provide safe passage for
bicyclists over the railroad tracks.
J) City bikeways should be linked to county bike-
ways and statewide highway bikeways.
12 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 13
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
K) Public transit stops should be easily accessible to
pedestrians and bicyclists. Covered bicycle racks
or lockers should be provided at transit stops.
L) Transit stops should be covered and contain a
bench to provide a convenient, pleasant waiting
area. The stops should be located so that oncom-
ing buses are easily visible. A buffer, sidewalk
and/or landscaping should be located between the
waiting area and motorized traffic.
M) Park and rides should be considered adjacent to
boulevards on regional transit routes to encourage
commuting residents to use public transit.
N) Maintain carrying capacity through driveway and
curb cut consolidation or reduction.
O) Off-street parking by uses located on boulevards
should be encouraged.
P) On-street parking removal or street widening
should be considered only at specific problem
locations, and alternatives and the impacts on
adjacent land uses should be studied. Special con-
sideration should also be given to a safe pedes-
trian environment.
Q) Boulevard intersections with streets with similar
uses should be designed to facilitate the move-
ment of traffic and to allow all turning move-
ments.
AVENUE (MAJOR COLLECTOR) (10.05.02)
Avenues provide concentrated pedestrian; bicycle
and motor vehicle access from boulevards to neigh-
borhoods and to neighborhood activity centers. As
Ashlandʼs population increases, transit routes may
access avenues. If public transit routes expand service
to avenues, the transit land use and design guidelines
for boulevards should be employed. The engineering
term for this type of street is major collector. Iowa
and Wimer Streets are examples of avenues.
On an average day 3,000 to 10,000 motor vehicle
trips are made on a typical avenue. Pedestrian and
bicycle facilities should be emphasized on avenues.
Avenues are similar to boulevards, but are designed
on a smaller scale. There are usually fewer motor
vehicle lanes and narrower rights-of-way.
Land Use
A) Mixed-use development should be encouraged on
avenues.
14 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 15
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
B) Multi-family development should be encouraged
in close proximity to avenues so that a variety of
transportation options are available.
C) Direct and convenient bicycle and pedestrian
access between land uses should be emphasized.
D) Schools, commercial areas, transit stops, employ-
ment areas and parks should be accessible by
bikeway) walkways.
E) New or expanding land uses, which attract trips
from the surrounding neighborhoods or from
throughout Ashland should be encouraged to
locate on avenues.
F) Regional land uses should be discouraged from
locating on avenues, except where a boulevard is
nearby and directly connected to a state/regional
traffic-way, such as Interstate 5.
Design
A) Avenue design should balance safe, attractive and
direct walkways and bikeways with an efficient
motor vehicle thoroughfare.
B) Commercial buildings should be oriented to the
street with the main entrance facing the bikeway
and walkway. Convenient bicycle parking should
be located near the main entrance.
C) Landscaped medians and park-rows offer a visual
sense of entry into the community and provide
pedestrians with a buffer from traffic. Amenities
such as benches, shade trees, bathrooms and water
fountains should be provided to accommodate
pedestrians and bicyclists.
D) Protected (pedestrian) crossings should be pro-
vided along avenues at a minimum of every three
blocks or approximately 1,000 feet.
E) Where a boulevard and an avenue intersect, two
avenues intersect or in high traffic areas, a pro-
tected crossing should be provided.
F) Signaled intersections involving avenues should
be designed to allow safe and easy movement of
bicycles. Signal triggering devices that can be
activated by bicycles should be designated on the
roadway. Intersections involving bicycle lanes
should be designed to minimize conflicts, such
as turning movements, and to provide adequate
bicycle crossings.
14 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 15
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
G) Bicycle lanes should be provided on avenues.
These lanes are separated from motor vehicle
lanes by an eight-inch solid white line, and must
be well marked.
H) All avenues should provide a smooth riding
surface. Drainage grates, abrupt edges in pave-
ment and debris make bicycle travel difficult and
unsafe.
I) Avenue and railroad intersection crossings should
be designed to provide safe passage for bicyclists
over the railroad tracks.
J) City bikeways should be linked to county bike-
ways and statewide highway bikeways.
K) Maintain carrying capacity through driveway and
curb cut consolidation or reduction.
L) Off-street parking by uses located on avenues
should be encouraged.
M) On-street parking removal or street widening
should be considered only at specific problem
locations, and alternatives and the impacts on
adjacent land uses should be studied. Special con-
sideration should also be given to a safe pedes-
trian environment.
N) Intersections of avenues with streets with similar
uses should be designed to facilitate the move-
ment of traffic and to allow all turning move-
ments.
NEIGHBORHOOD COLLECTOR
(MINOR COLLECTOR) (10.05.03)
Neighborhood collectors distribute traffic from boule-
vards or avenues to neighborhood streets. The average
traffic volume of a neighborhood collector is 1,500 to
5,000 motor vehicles per day. The engineering term
for this type of street is minor collector. Fordyce and
Morton Streets are examples of neighborhood collec-
tors.
Land Use
A) Mixed-use development that serves the local
neighbor- hood should be encouraged.
B) New land uses and major expansions of existing
land uses, which attract many traffic trips from
outside the neighborhood, should be discouraged
on neighborhood collectors.
Design
A) Neighborhood collector design should balance
safe, attractive and direct walkways and bikeways
with an efficient motor vehicle thoroughfare.
16 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 17
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
B) Commercial buildings should be oriented to the
street with the main entrance facing the bikeway
and walkway. Convenient bicycle parking should
be located near the main entrance.
C) Landscaped islands and park-rows offer a visual
sense of entry into the neighborhood and provide
pedestrians with a buffer from traffic. Amenities
such as benches, shade trees, bathrooms and water
fountains should be provided to accommodate
pedestrians and bicyclists.
D) Protected (pedestrian) crossings should be pro-
vided along neighborhood collectors at a mini-
mum of every three blocks or approximately
1,000 feet.
E) Bicycle lanes should be provided on streets desig-
nated as neighborhood collectors when the aver-
age daily traffic is over 3,000, and/or when actual
travel speeds exceed 25 miles per hour as outlined
in the Oregon Bicycle and Pedestrian Plan. Bike
lanes are separated from motor vehicle lanes by
an eight-inch solid white line, and must be well
marked.
F) All neighborhood collectors should provide a
smooth riding surface. Drainage grates, abrupt
edges in pavement and debris make bicycle travel
difficult and unsafe.
G) Neighborhood collectors and railroad intersection
crossings should be designed to provide safe pas-
sage for bicyclists over the railroad tracks.
H) City bikeways should be linked to county bike-
ways and statewide highway bikeways.
I) Maintain carrying capacity through driveway and
curb cut consolidation or reduction.
J) Off-street parking by uses located on neighbor-
hood collectors should be encouraged.
K) On-street parking removal or street widening
should be considered only at specific problem
locations, and alternatives and the impacts on
adjacent land uses should be studied. Special con-
sideration should also be given to a safe pedes-
trian environment.
L) Intersections of neighborhood collectors with
streets with similar uses should be designed to
facilitate the movement of traffic and to allow all
turning movements.
16 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 17
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
M) Distribution of traffic to the neighborhoods on
neighborhood collectors should be encouraged.
N) Non-local neighborhood trips should be discour-
aged on neighborhood collectors.
NEIGHBORHOOD STREET
(LOCAL STREET) (10.05.04)
Neighborhood streets provide access to residential
and neighborhood commercial uses. Motor vehicle
traffic should be relatively low at 1,000 or less motor
vehicles per day. The engineering term for this type
of street is “local” street. Sixth, Allison and Quincy
Streets are examples of neighborhood streets. Neigh-
borhood streets should facilitate pedestrian circula-
tion, allow a meeting place for residents and provide
a play area for children. Generally, neighborhood
streets are the narrowest city streets.
Land Use
A) The scale and character of a neighborhood street
design should correspond directly to the land use
it serves.
B) Auto-oriented land uses should be discouraged
from using neighborhood streets as a primary
access route.
Design
A) Neighborhood street designs should balance safe,
attractive and direct walkways and bikeways with
an efficient motor vehicle thoroughfare.
B) Landscaped islands and park-rows offer a visual
sense of entry into the neighborhood and provide
pedestrians with a buffer from traffic. Amenities
such as benches, shade trees, bathrooms and water
fountains should be provided to accommodate
pedestrians and bicyclists.
C) Traffic control measures or devices may be used
to slow traffic, control access or deny traffic
movements on neighborhood streets where safety,
speed, or non-local traffic problems exist.
D) On-street parking removal or street widening
should be considered only at specific problem
locations, and alternatives and the impacts on
adjacent land uses should be studied. Special con-
sideration should also be given to a safe pedes-
trian environment.
E) Non-local neighborhood trips should be discour-
aged on neighborhood collectors.
18 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 19
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
F) The use of neighborhood streets for one-way traf-
fic is not generally appropriate, unless the entire
circulation pattern of the neighborhood has been
considered.
ALLEY (10.05.05)
The alley is a semi-public neighborhood space that
provides access to the rear of property. The alley
eliminates the need for front yard driveways and pro-
vides the opportunity for a more positive front yard
streetscape. An alley at the rear of properties allows
the street located adjacent to the front of properties
to be designed using a narrow width with limited
on-street parking. The use of alleys can create the
opportunity for the use of narrower lots to increase
residential densities. Alleys are appropriate in all resi-
dential areas and in some commercial areas for busi-
ness frontage, and for access and delivery depending
on the circulation pattern of the area.
Land Use
A) Parking spaces and structures should be encour-
aged to locate on alleys.
B) Delivery areas for commercial uses should be
encouraged to locate on alleys.
C) Accessory units above garages and accessory
residential uses should be located on alleys in
residential areas.
D) Multi-family units and commercial uses may be
appropriate on alleys.
E) Utility easements should be accommodated in the
alley.
Design
A) Landscaping, street trees and varying parking
surfaces should be incorporated into the alley to
create a streetscape.
B) Alleys within commercial districts are valu-
able public spaces. Buildings should be oriented
toward the alley with individual businesses show-
ing a strong sense of entry. Alternative pavement
materials, textures and colors should be used to
develop the pedestrian environment.
C) When multiple structures are located on one lot,
the buildings adjacent to the alley should be ori-
ented to- ward the alley.
D) The use of alleys for one-way traffic is not gener-
ally appropriate, unless the entire circulation pat-
tern of the neighborhood has been considered.
18 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 19
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
MULTI-USE PATH (10.05.06)
Multi-use paths are off-street facilities used primar-
ily for walking and bicycling. These paths can be
relatively short connections between neighborhoods
(neighborhood connectors), or longer paths adjacent
to rivers, creeks, railroad tracks and open space. Fre-
quented by both pedestrians and bicyclists, multi-use
paths provide shortcuts through neighborhoods and to
other destinations.
Land Use
Parks and schools should be encouraged to locate
along multi-use paths.
Design
A) Multi-use paths within the city limits of Ashland
should be linked to state highway bikeways and
county bikeways.
B) Multi-use paths should be built as neighborhood
connectors in areas where block dimensions
exceed the recommended maximum circumfer-
ence standard.
C) Multi-use paths shared by pedestrians and bicy-
clists should emphasize design features and
adequate path markings that allow for the safety
of all users.
D) Intersections of multi-use paths and streets should
minimize conflicts and provide adequate pedes-
trian and bicycle crossings. Crossings should be
located at points along the road where adequate
sight distance exists. When paths cross streets,
safety devices such as signs, signals and painted
crosswalks should be considered. Curb cuts
should be provided.
E) Intersections of multi-use paths with railroad
crossings should be designed to provide safe pas-
sage for pedestrians and bicyclists over the rail-
road tracks.
F) Railings and barriers should be provided on both
sides of bridges on multi-use paths.
G) All multi-use paths should be signed with regula-
tory, warning and destination signs as outlined in
the Oregon Bicycle and Pedestrian Plan.
10.06 The Street System
INTRODUCTION (10.06.01)
Streets are pivotal in shaping the character of Ashland
neighborhoods. Streets provide the first impression
visitors have of the community, and longtime resi-
dentʼs view Ashland primarily from the streets — the
cityʼs most prevalent public viewshed.
20 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 21
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
Street, public right-of-way and street right-of-way are
used interchangeably throughout this document. The
term “street” refers to much more than the roadway
surface. It includes the sidewalk, planting strip, street
trees, lighting and street furniture, as well as traffic
calming structures. The publicly owned land a street
occupies is called the right-of-way.
Streets provide a travel corridor for pedestrians,
bicycles and motor vehicles. They have also histori-
cally served aesthetic and social purposes as multi-
purpose public spaces, which diffuse light, circulate
air, provide landscaped vistas and facilitate informal,
spontaneous recreation and socializing.
After World War II and the development of suburban
street standards, streets became single-purpose spaces
for the safe and convenient operation of automobiles.
Houses were set farther back; sidewalks often disap-
peared completely and use of the front yard as an
activity area decreased.
Four decades of single-purpose streets have resulted
in negative consequences, such as the loss of livable
neighborhoods due to fast-moving traffic. The cost
of an automobile-dominated transportation system,
trafficʼs effect on quality of life and the environmental
degradation caused by motor vehicles, have forced
communities to examine the ways in which the public
right-of-way is used. Streets must be reclaimed as
multi-purpose public spaces to facilitate non-auto
travel and to maintain community livability.
10.07 Existing Street Network
NETWORK DESCRIPTION (10.07.01)
Ashlandʼs geographic location has historically gov-
erned local transportation patterns. Bounded on the
west by the foothills of the Siskiyou Mountains and
on the eastern edge by Interstate 5 and large flood-
plains, the city has developed in a linear fashion. The
main thoroughfare, North Main StreetSiskiyou Bou-
levard, runs between steep terrain to the south and the
gentle slopes of the north.
Ashlandʼs street system design reflects the cultural
values and available technology of earlier eras. Most
of the first streets were developed within what is
today the downtown core. Streets in the Railroad
District were laid out in a grid pattern perpendicular
and parallel to the tracks. Subsequent neighborhood
streets were patterned in a strict north/south grid with
little consideration for terrain limits.
As a result, many Ashland streets are very steep.
As Ashland became increasingly auto dependent,
attempts were made to reduce the carʼs impact by
Streets must be
reclaimed as multi-
purpose public
spaces...
20 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 21
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
limiting access to neighborhood areas. For example,
more recent residential developments contain curvi-
linear streets with cul-de-sacs. Current street design
trends employ a modified grid pattern while accom-
modating terrain limitations.
The main boulevard, North Main Street-Siskiyou
Boulevard, extends the length of the city. Two bou-
levards branch off it in an easterly direction. Ashland
Street (Highway 66) intersects Siskiyou Boulevard
near Southern Oregon State College and Interstate 5.
East Main Street runs in an easterly direction from
the city center to Highway 66. Numerous avenues and
neighborhood collectors connect city neighborhoods
to the boulevards.
Ashland has three freeway interchanges adjacent to
Interstate 5. Exit 19 is located at the northern end of
the city off Valley View Road. Exits 14 and 11 are
located at the southern end of the city off Ashland
Street (Highway 66) and Siskiyou Boulevard respec-
tively. Interstate 5 provides primary north-south
access through the Rogue River Valley as well as to
other Oregon regions and the state of California. On
Interstate 5, Ashland is 12 miles from Medford, 40
miles from Grants Pass and 45 miles from Yreka,
California.
Several state highways connect Ashland to areas in
Southern Oregon. State Highway 99 (Rogue River
Highway) is also known as North Main Street and
Siskiyou Boulevard within the city limits. Highway
99 closely parallels Interstate 5 and extends from the
freeway in Ashland to Grants Pass. Highway 99 also
provides access to areas northwest of Ashland.
State Highway 66 (Greensprings Highway) runs in an
easterly direction from Ashland to Klamath Falls, 60
miles away. Dead Indian Memorial Road, a county
road, extends in a northeasterly direction to State
Highway 140. State Highway 140 provides access
to Klamath Falls and connects to State Highway 62.
Due to steep, rugged terrain, the area directly west of
Ashland is not accessible by local roads. The main
routes to the Applegate Valley and the Illinois Valley
are either State Highway 238 through Jacksonville or
U.S. Highway 199 through Grants Pass.
STREET CONDITIONS (10.07.02)
Approximately 83 miles of streets lie within Ashland.
There are 75 miles (90%) of paved streets and eight
miles (10%) of unpaved streets. Public road main-
tenance within Ashland is shared by the City, the
County, and the State. The Oregon Department of
Transportation maintains two of the boulevards in
the city—North Main-Siskiyou Boulevard (Highway
99) and Ashland Street (Highway 66). Both streets
22 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 23
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
are state highways. Jackson County provides main-
tenance for county roads within the city. The City of
Ashland Public Works Department maintains all other
public streets within the city limits. The City grades
and gravels unpaved streets and conducts required
maintenance on paved streets.
Future transportation projects currently planned and
funded are described in Appendix A.
STREET CLASSIFICATIONS (10.07.03)
Ashland streets have been classified as part of the
transportation planning process. Roadway classifica-
tions, also called functional classifications, establish
uniform criteria for the construction, maintenance
and use of the streets. The classifications are based
on street function, traffic volume, average trip length,
spacing and relationship to the network. There are
four street classifications: boulevard, avenue, neigh-
borhood-collector and neighborhood streets. The
Transportation System Map on page 9 shows the
functional classification of Ashland streets. The map
also indicates proposed streets, which will improve
travel circulation as the community grows.
The City of Ashland uses a modified version of the
functional class system as outlined in the Street Clas-
sifications section. The modifications were made
to recapture streets as multi- modal travel corridors
and public spaces. Specifically, traditional street
type names are used in place of standard engineering
terms. Boulevard is used for arterial, avenue is used
for major collector, neighborhood collector is used
for minor collector and neighborhood street is used
for local street. Traditional street type names are used
because they evoke classic, human scale streets such
as Siskiyou Boulevard and East Main Street rather
than modern, automobile dominated roads. See Street
Classifications section for further information.
The functional class system was developed by the
Federal Highway Administration and adopted in
the Federal-Aid Highway Act of 1973. The Oregon
Transportation Planning Rule of 1991 requires local
jurisdictions to use the functional classification
system and ensure that road classifications are consis-
tent with regional and state functional classifications.
According to the functional classification system,
streets serve two basic purposes—traffic movement
and land access. Boulevards move traffic through the
community and onto the collector system and restrict
or prohibit access from adjoining properties. Avenues
and neighborhood collectors are designed to collect
traffic from neighborhood streets and funnel it onto
boulevards. Although some property access is pro-
vided by these street types, moving traffic is of prime
importance. Neighborhood streets primarily provide
22 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 23
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
access to adjacent properties and move neighborhood
traffic onto collectors. Neighborhood streets should
be protected from shortcut or detour traffic, from
vehicles moving at excessive speeds, and from park-
ing unrelated to residential activities.
While the functional classification system is a useful
transportation planning tool, it has several shortcom-
ings. First, the concentration on vehicular traffic
volumes and street capacities tends to dominate street
design and construction. Streets are widened at the
expense of sidewalk width, trees and front yards.
Cities across the nation have made changes based on
the assumption that traffic would increase at a steady
rate in the future and have used traffic volumes and
capacities as principal measures of street use. It is
becoming increasingly apparent that a roadʼs function
and its relationship to the network, as well as its traf-
fic volume, must be considered.
The functional classification system, which focuses
on vehicular traffic, assumes that streets exist for two
purposes—moving motor vehicles and providing land
access. As a result, non-automobile users (pedestrians,
bicyclists and transit riders) are only considered in
afterthought. The third street purpose that of provid-
ing a public space is entirely ignored.
10.08 Roadways Needs
Ashland citizens have expressed opinions about
transportation needs in many forums. To address their
concerns, the city held neighborhood meetings from
February to April 1994. At these meetings citizens
identified a variety of problems and possible solu-
tions. Appendix B contains a complete list of neigh-
borhood meeting comments.
LAND USE AND TRAVEL PATTERNS (10.08.01)
Transportation demand and resulting traffic are deter-
mined almost entirely from the ways in which land is
organized and used. Suburban development tends to
be low in population density and requires use of the
personal automobile for almost all travel. Destinations
are far apart in suburban areas and residential neigh-
borhoods are strictly separated from the places people
work, shop, and socialize. Extensive areas of subur-
ban development result in sprawl.
In contrast, traditional neighborhood development is
compact and integrates residential areas with employ-
ment, shopping and recreational districts. By locat-
ing destinations close to areas in which people live,
walking, bicycling and public transit can be used for
everyday trips. While a sprawling development pat-
tern systematically locks cities into dependence on
the single-occupant automobile, a traditional develop-
ment pattern provides multiple transportation options.
Transportation demand
and resulting traffic
are determined almost
entirely from the ways in
which land is organized
and used.
24 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 25
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
A recently completed study by the University of Cali-
fornia at Berkeleyʼs Institute of Urban and Regional
Development compared travel characteristics in two
distinctly different neighborhoods in the San Fran-
cisco-Oakland regionʼs East Bay. These enclaves
included Rockridge, an older compact and mixeduse
neighborhood with many traditional design qualities,
and Lafayette, a post-World War II community domi-
nated by suburban tract housing, spacious community
designs and auto- oriented retail strips and plazas.
The two neighborhoods were discovered to be similar
in some ways. They lie in the same geographic area,
are the same approximate distance to downtown San
Francisco, have a public transit station, are served
by the same regional freeway and have comparable
median household incomes.
The study, however, found that the older traditional
neighborhood, Rockridge, averaged a 10% higher
share of non-work trips by travel modes other than
automobile, compared to the auto-oriented Lafayette.
Neighborhood characteristics exerted the strongest
effect on non-work trips of less than one mile. Spe-
cifically, in Rockridge walking trips were frequently
substituted for automobile trips. Residents made 28%
of non-work trips under one mile by foot and 66% by
automobile. In contrast, Lafayette residents made just
6% of non-work trips by foot and 81% by car.
The University of California study highlighted two
factors, which have been critical in the evolution
of sprawl—the personal automobile and single-use
zoning. Prior to the 1950s, homes were built on small
lots close to public transportation. As economic
growth and the national standard of living escalated in
the 1950s, an increasing number of households pur-
chased automobiles. As extensive road systems were
developed throughout the nation and within com-
munities, the car became the connecting link between
home and work. New homes were built on large lots
away from employment centers and the suburban
population exploded.
Shortly before the automobileʼs proliferation, single-
use zoning, which designates areas for specific,
limited land uses, became the basis of comprehensive
planning and zoning in the United States. Singleuse
zoning had been developed in the late nineteenth
century to prevent poor living conditions caused by
industrial pollution, noise and odor, and to prevent
fire and disease.
The resulting development pattern decentralized land
uses and strictly separated residential and commercial
functions. The landmark 1927 U.S. Supreme Court
decision of the Village of Euclid vs. Amber Realty
Co. upheld the municipalityʼs right to designate
areas for single land uses9. Ironically, cars traveling
“Once attending a
childʼs performance
in a play or sporting
event was a pleasur-
able part of life; now
it requires a level of
scheduling that char-
acterizes a military
campaign. How many
parents can walk over
to the playing fields
when a child is playing
on the soccer team or
even come to watch the
soccer game because
they have no time?”
Anton Clarence
Nelessen
24 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 25
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
between separate uses have caused the pollution and
destruction of natural resources that singleuse zoning
was originally intended to eliminate.
Sprawl-induced dependence on the automobile nega-
tively affects communities in many ways. Sprawl
emphasizes the private living space and ignores
development of public spaces. It does not respond to
changing demographics. As families become smaller
and less traditional, and as cars are required for daily
living, other demands, such as regular chauffeuring of
children, become a hardship.
Sprawl is expensive. On average, a two year old car
costs $5,000 per year to own and maintain~3. Keep-
ing a private automobile has become more costly
for wage earners and a formidable economic barrier
for lower income residents. The cost of installing
and maintaining public infrastructure, such as roads,
sewers, water, electricity, schools, parks, police and
fire protection, grows as the amount of serviced land
area increases.
The public pays the high infrastructure costs for a
sprawling development pattern. Extensive road net-
works consume valuable land and low density makes
transit inefficient and ineffective. Requiring high-
energy consumption, sprawl is also a major source
of air and water pollution. The cumulative effects of
sprawl compromise the quality of life and the envi-
ronment, and discourage a sense of community.
The traditional neighborhood is an alternative to low
density development. Traditional neighborhoods are
moderately dense, multiple-use communities which
provide transportation options. Traditional communi-
ties include a core with mixed and multiple uses, vari-
ation in the size of buildings and building footprints,
an increase in the size of residential units and lot sizes
from the neighborhood core to its periphery, open
space and a focus on pedestrians and human scale
in the streetscape. In Ashlandʼs traditional neighbor-
hoods, such as the Railroad District, new develop-
ment and redevelopment increasingly integrate those
elements, which have historically proven effective.
Traditional neighborhoods facilitate everyday life
without the need for extensive driving. Compact land
use, mixed and multiple-use areas and the pedestrian
environment promote walking, bicycling and public
transit. In contrast, the low density development,
separated land uses and automobile environment of
suburban areas limits travel to the car and promotes
an increasing number of vehicle miles traveled
(VMT) per capita. Traditional neighborhood devel-
opment must be facilitated to increase walking and
bicycling trips and to make public transit possible in
the long term.
26 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 27
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
STREET LAYOUT AND DESIGN (10.08.02)
Street network patterns and the physical design of the
right-of- way are intrinsically linked to travel patterns
and neighborhood character. Successful, multi-modal
streets in traditional neighborhoods resemble invit-
ing public spaces and function in an interconnected
network. Street layout and design should support the
traditional neighborhood.
Traditional neighborhoods such as the Ashlandʼs
Railroad District reveal common characteristics in
network layout and street design. They typically
contain a grid network—a framework of parallel or
crisscrossed streets intersecting at right angles with
very few dead ends. Blocks are 300 to 400 feet in
length with 1,200 to 1,600 feet perimeters.
In contrast to the multiple curves and cul-de-sacs
found in suburban development, a grid network
spreads out local traffic by providing multiple ways to
reach the same point. The many interconnections and
short block lengths mean that trips are more direct
and shorter in distance. This network allows residents
to get to neighborhood destinations, schools, stores,
or friendsʼ houses, without entering a boulevard.
Physical street design is strikingly different in tradi-
tional neighborhoods than in suburban areas. Typical
neighborhood streets have evolved from the narrow
pavement width and right-of-way designed to carry
horse-drawn vehicles to the much wider streets seen
in todayʼs suburbs, which allow people to drive 40 to
50 miles per hour.
Traditional neighborhood streets typically have 30 to
50 feet of right-of-way, with 18 to 24 feet of pave-
ment. Houses are set back 12 to 20 feet from the
right-of-way and detached garages are either located
behind the house or set back further than the house
facade. In contrast, subdivision streets have 60 feet
of right-of-way, 32 to 36 feet of pavement; houses set
back 20 to 60 feet from the right-of-way and attached
garages set back the same distance as the house
facade.
Auto Oriented Transportation Balanced Planning Planning
26 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 27
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
Other elements of traditional neighborhood street
design include parallel parking on at least one side,
park-rows and sidewalks on both sides, street trees
and street lamps at regular intervals, curb radii of not
more than 15 feet, and bump-outs and safety islands
on wider streets. In traditional neighborhoods, all
streets are not the same. Some serve high-density
neighborhoods, some commercial cores, and others
serve low- density districts. They also vary in pave-
ment widths, sidewalks and building locations con-
trasting markedly with rigid contemporary suburban
standards. A noticeable feature of traditional neigh-
borhoods is that design differs from street to street.
Street design should promote safety and livability. It
should permit comfortable and safe pedestrian and
bicycle travel as well as motorized vehicular opera-
tion. Vulnerable users such as children, the disabled
and the elderly, should be protected. The street should
be a multipurpose, public space that enhances the
neighborhoodʼs overall aesthetics. Deliveries, emer-
gency access and where densities allow, bus or para-
transit service must be accommodated.
Ashlandʼs street layout and design need to be better
matched to adjacent uses, the physical features of the
land, location in the neighborhood and position in the
community. A grid or modified grid network pattern
should be used to provide connectivity. Ashland street
design standards must incorporate traditional neigh-
borhood street elements.
TRAFFIC CALMING (10.08.03)
The challenge of the neighborhood street system is
to balance restoring the human scale characteristic
of traditional neighborhoods with residentsʼ desire
for convenient automobile access to their home. This
involves reducing traffic unrelated to the neighbor-
hood, slowing down traffic using the streets and pro-
viding for attractive and unobtrusive vehicle parking.
There are three methods for achieving traffic control
in the neighborhood: general laws and ordinances;
traffic control devices; and traffic calming techniques.
The third method, traffic calming, is increasingly
being used on neighborhood streets because traffic
control devices and speed limit laws tend to be inef-
fective in both deterring through traffic and slowing
down local traffic.
Traffic calming uses geometric design features to
guide or restrict physical movement of motor vehi-
cles, bicycles and pedestrians. The basis for traffic
calming is simple. Drivers tend to respond to their
surroundings rather than to posted speed limit signs.
If the street is designed using suburban standards
and has the width and gentle curves of a highway,
people will drive as if they are on a highway. Even
Drivers tend to
respond to their
surroundings
rather than to
posted speed
limit signs.
28 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 29
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
the Romans understood that certain measures had to
be taken to restore neighborhood tranquillity when
they placed stone blocks at some street entrances as a
physical barrier against high speed chariot traffic.
Traffic calming can be used to address two major
problems: the protection of neighborhood streets from
high speed and through traffic; and the mitigation of
traffic impacts on residential areas located on major
streets.
“Cut-through” traffic in established neighborhoods
disrupts life and erodes the neighborhoodʼs integrity.
Residential traffic problems arising on major streets
may require special efforts to balance residentsʼ needs
with those of the traveling public.
A wide variety of traffic calming measures can be
combined in various ways to create different traffic
control levels. In general, where there is an alterna-
tive route, steps, which discourage use and decrease
roadway capacity, are appropriate. In situations where
no alternative route exists, traffic can be slowed down
without substantially taking away capacity4.
Traffic problems are most judiciously handled when a
clear, understandable traffic control planning process
is in place.
Traditionally in Ashland and most small cities, traffic
complaints are handled on a case-by-case basis. The
weakness in this approach is that complaints do not
always come from the areas where problems are most
frequent, spot treatment often simply shifts problems
to other areas, and residents may demand a specific
action which may not be the best solution to their
problem.
The Institute of Transportation Engineers recom-
mends developing a traffic control planning process
which regularly inventories neighborhood traffic
problems throughout the community, and adopting
standards to identify conditions which need attention.
Once a traffic problem meets the criteria for traffic
control treatment, the following process should be
used:
• assess problem and causes
• develop alternative courses of action that could
eliminate or reduce the problem
• predict both primary and secondary impacts of
alternatives on the neighborhood and general
community
• develop an implementation strategy, including a
financing and maintenance plan
• evaluate in-place performance of selected action
or actions, and make adjustments as needed
28 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 29
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
The City of Ashland should develop a traffic control
planning process for the systematic treatment of traf-
fic problems in the existing street network. Traffic
calming measures should be used to protect neigh-
borhood streets from through traffic and to mitigate
traffic impact on major streets.
FUTURE TRAVEL (10.08.04)
A travel forecasting model for Ashland was developed
in 1992 by Kittelson and Associates, Inc. The model
tested various measures of reducing future motor
vehicle travel in the Ashland area by replicating the
existing traffic volumes and predicting future volumes
on Ashland streets. Non-automotive measures and
automobile-oriented measures were both studied.
Specifically, the 1992 model addressed two questions.
First, what roadway network improvements would be
necessary for all boulevards and avenues to operate
at volume-to-capacity ratios of less than 1.0 in Year
2005? (A volume-to-capacity (V/C) ration equal to or
greater than 1.0 means the roadway volumes exceed
capacity of the facilities.) Second, what net effect
would future non-auto modal enhancements have
upon overall travel in the Ashland area in 2005?
The first test, the “base scenario”, was conducted
to predict traffic flow in the year 2005. It assumes
no physical changes to the street network and that
the modal split remains the same. The base scenario
serves as a constant, to which several other scenarios
using different transportation system options can be
compared.
In the base scenario, five roadway segments on
Ashlandʼs boulevard/avenues street system operate
with V/C ratios in excess of capacity in 2005:
• Siskiyou Boulevard (northbound and southbound)
between Mountain Avenue and Ashland Street
• Siskiyou Boulevard (northbound) south of the
inter-section of East Main Street and Lithia Way
• Ashland Street (eastbound) between Interstate 5
southbound and northbound ramps
• Pioneer Street (both directions) at East Main
Street
• Valley View Road (northbound) at Interstate 5
inter-change
When a scenario with full improvements to Hersey
Street was studied, the roadway segment of Siskiyou
Boulevard south of the intersection of East Main
Street and Lithia Way operated below capacity.
Two “automobile-oriented” scenarios, building addi-
tional roadway capacity and transportation system
management (TSM), were developed to test whether
auto measures would alleviate future roadway conges-
tion. (TSM is a method of maximizing the efficiency
30 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 31
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
of the existing transportation system by managing
traffic through the use of traffic control devices such
as traffic signals, ramp meters, median turn barriers,
restricted access to properties along congested cor-
ridors, etc.)
The first scenario to enhance street capacity added
more travel lanes to Siskiyou Boulevard between
Ashland Street and Lithia Way, and to Ashland Street
between the Interstate 5 ramps. The five “above
capacity” street segments from the base scenario all
operated at V/C rates less than .9 with added travel
lanes in 2005.
A second test was conducted using TSM measures
such as traffic signal system enhancements, intersec-
tion capacity improvements and access management
of driveways and intersections instead of added travel
lanes. All street segments operated with V/C rates
less than 1.0 in 2005 as a result of TSM improvement
measures.
Five “mode-split enhancement” scenarios, pedestrian,
bicycle, transit, high occupancy vehicle and combined
modes, tested whether non-auto measures would
reduce automobile travel in the Ashland area and
relieve roadway congestion. The pedestrian scenario
applied a 25% reduction rate to all trips less than one-
half mile, and resulted in a less than 1% reduction in
auto trips in 2005. The bicycle scenario applied a 10%
reduction to all trips between one-half and two miles,
and resulted in a 2% reduction in auto trips in 2005.
The transit scenario applied a 10% vehicle trip
reduction rate to all origin-destination pairs located
adjacent to RVTD bus service Routes #5 and #10 in
Ashland. These calculations resulted in a reduction
of approximately 2% of future auto trips. The high
occupancy vehicle to Medford scenario applied a 15%
vehicle trip reduction rate to all Ashland generated
trips with an origin or destination located in Medford.
This calculation results in a reduction of 6% future
auto trips in Ashland.
The combined scenario of all the mode-split enhance-
ments tested the impact of all transportation demand
management (TDM) measures on reducing auto travel
in Ashland. (The purpose of TDM is to reduce the
number of motor vehicles using the road system by
providing a wide variety of mobility options. Exam-
MODE-SPLIT ENHANCEMENT SCENARIOS (TDM) FROM 1992
TRAVEL DEMAND MODEL
Increase of... Reduction in 2005 Auto Trips
25% of all trips made by walking - 1%
10% of all trips between .5 and 2 miles by bicycling 2%
10% of trips adjacent to bus routes by transit 2%
15% of trips to Medford by high occupancy vehicle 6%
All Mode-Split Enhancements Combined 11%
30 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 31
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
ples of TDM strategies include encouraging walk-
ing and bicycling trips, decreasing distance traveled
through land use, encouraging ridesharing and alter-
native work arrangements.) Combined trip reduction
factors resulted in a decline of approximately 11%
future auto trips in Ashland. Overall, auto travel was
significantly reduced on North Main Street, Siskiyou
Boulevard and Ashland Street. However, V/C rates in
excess of 1.0 are still found on two of the five “above
capacity” roadway segments from the base scenario—
Siskiyou Boulevard between Mountain Avenue and
Ashland Street, and on Pioneer Street at Main Street.
Finally, a scenario combining the TSM and Combined
Mode- Split Enhancements was developed to test the
impact that TSM and TDM measures would have on
reducing auto travel in Ashland. The combined TSM/
TDM enhancement scenario resulted in a significant
reduction of future auto trips on North Main Street
and Ashland Street. No roadway segments on Sis-
kiyou Boulevard showed V/C rates above 1.0.
The City must select a transportation system alterna-
tive that adequately meets Ashlandʼs transportation
needs. The alternative should combine strategies
which best meet the goals and objectives of the Trans-
portation Element and which address future capacity
insufficiencies.
The travel demand model is a valuable tool for pre-
dicting where future bottlenecks, sensitive inter-
sections, etc. will occur. However, like any other
forecasting method, travel demand modeling has
limitations. Travel demand models are automobile-
oriented and were developed strictly to determine
where roads should be built or expanded. Traditional
models look only at automobile travel and assume
that these patterns will continue and remain constant
in the future. They do not incorporate alternative
modes of transportation or changes in land use pat-
terns, and they do not examine travel behavior or
options, which might affect how people travel. When
analysis assumes the automobile is the only transpor-
tation option, the only solution for congested areas
is to add capacity to the streets. In this respect, the
travel demand model perpetuates accommodation of
increased traffic by building roads.
Many communities mistakenly use model results as
the sole basis for transportation policy. Streets, which
were supposed to function below capacity for many
years in the future, may reach above-capacity condi-
tions in a much shorter time. When cities use travel
demand modeling as an overriding doctrine in trans-
portation planning, they often accept methods, which
accommodate automobile traffic by building new
roads.
In every city of the
world the volume
of traffic is limited,
intentionally or
unintentionally, by
measures adopted
by governments. If
these measures were
relaxed, there would
be more traffic; if they
were strengthened,
there would be less.
In other words the
volume of traffic in a
city is not something
like the rainfall that
has to be accepted...”
from Urban Transport
and the Environment
32 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 33
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
Recent travel demand models have only begun to
attempt incorporating options such as walking, bicy-
cling, public transit and different land use patterns.
Transportation modeling professionals began to con-
sider non-auto modes in response to passage of the
Federal Inter-modal Surface Transportation Efficiency
Act and the Oregon Transportation Planning Rule.
These laws explicitly acknowledge nonauto transport
as viable modes of transportation and initiated a new
era in transportation planning. At the time of this
writing, a model, which solidly predicts walking and
bicycling has not been perfected.
The 1992 travel demand model for Ashland included
non-auto trip analysis to the extent possible at that
time and assumed a traditional, single-use land
development pattern in the future. Since then, mod-
eling alternative land use patterns has become a
fairly common practice. Depending on advances in
travel demand modeling and available resources,
the Ashland 1992 model may require refining to test
alternative land use patterns and non-auto transport
options.
FREEWAY ACCESS (10.08.05)
Presently, the City of Ashland is served by three free-
way interchanges- Exit 19 at the northern endofthe
city; Exit 14 at the intersection of Ashland Street and
Interstate 5, and Exit 11 at the far southern end of the
community at the intersection of Siskiyou Boulevard
and Interstate 5. In the previous Transportation Ele-
ment of the Comprehensive Plan (1981), there was
discussion of an additional freeway interchange at the
intersection of North Mountain Avenue and Interstate
5, designed to serve the center of the community. For
several reasons, this new interchange is not likely to
be developed during the planning period. However, it
is not precluded as an option for the future.
First, additional research has been conducted regard-
ing the service area of the interchange. The new inter-
change would primarily serve Southern Oregon State
College commuter students and Medford-based trips
from the nearby residential areas. However, due to the
linear nature of the community, and the perceived dis-
tance of the freeway interchange from Siskiyou Bou-
levard, the total area served by the interchange would
not be large. The overall impact on through traffic
to the community is not offset by the large financial
investment necessary to construct the interchange.
Second, regarding the financial investment, cur-
rent state highway construction dollars are tightly
controlled, and the likelihood of gaining state sup-
port for construction of an interchange during the
planning period is minimal. The availability of three
interchanges for a community of 18,000 appears to
be ample, by state standards. Therefore, the cost of
32 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 33
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
constructing the interchange would fall entirely on the
local community.
Third, the investment in the freeway interchange, and
the necessary infrastructure improvements to streets
accessing the North Mountain area would be almost
entirely auto-oriented. The benefits to other modes of
travel would be minimal, especially when compared
to the large capital outlay necessary. Therefore, a
freeway interchange at North Mountain Avenue is not
likely to be developed during the planning period, but
it is not precluded as an option for the future.
ACCESS MANAGEMENT (10.08.06)
Access management reduces maneuvers in the travel
corridor through roadway design techniques that
maintain or increase street capacity. Access manage-
ment is used on boulevards and avenues to create a
safe roadway environment that allows pedestrian,
bicycle and motor vehicle traffic to flow smoothly.
Among tools used in access management are proper
spacing of traffic signals, provision of turn lanes, use
of medians and planned driveway spacing and design.
Access management is a useful transportation man-
agement tool for the existing street network as well
as for future streets. It can be used as an alternative
to constructing additional motor vehicle travel lanes
on existing streets. Preliminary studies of Highway
30 from Portland to Astoria show that using access
management techniques can decrease the need for tra-
ditional highway widening and equal savings of over
$75 million over the next 20 years.
All streets functionally classified by the Oregon State
Division of Highways as rural collectors and minor
arterials that connect Ashland with other municipali-
ties are under the administrative control of either the
County or the State. Access management on these
routes is handled by permit. Within the city limits,
roadways under State administrative control are coor-
dinated by the State. Access management on streets
under jurisdictional control of the City is its respon-
sibility. In the interest of minimizing street construc-
tion and widening, the City of Ashland must develop
an access management plan for the boulevard and
avenue street network in cooperation with the County
and State.
SAFETY (10.08.07)
Safety is important in existing street network function
as well as in the successful design of future streets.
Areas prone to traffic accidents must be identified and
systematically addressed.
Safety problems are rooted in the conflicts among the
many users of street space. Although streets are public
property and belong to everyone, some users have
34 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 35
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
preempted more of the street space than others. The
“traffic function”, moving traffic streams efficiently,
competes with streets as public spaces, access to
properties and parking.
The number and types of conflicts between street
users depends on the facilityʼs physical design and
on the usersʼ behavior. In order to identify goals for
street design, it is important to identify all user needs,
consider what conflicts they might have and what
safety needs might result. Safety for all users should
be a guiding factor in street planning and design in
Ashland.
Conflicts arise out of the manner in which people use
the street and interact with other users. As outlined in
the Pedestrian/Bicycle Section, well-enforced traf-
fic laws play an important part of street safety. Also,
transportation safety education is one way to famil-
iarize pedestrians, bicyclists and drivers with proper
practices and traffic law.
REGIONAL AND STATE ROADWAY SYSTEMS
(10.08.08)
Clearly, Ashland needs a safe and efficient roadway
system connecting the city to the region, to the state
and to the rest of the nation. The United States has
heavily invested in the interstate highway system,
and as a result the flow of people, goods and service
depends on the roadway network. In the interest of
the residents and the local economy, Ashlandʼs trans-
portation system must be coordinated with county,
regional, state and federal jurisdictions.
In the Rogue Valley region, land use patterns directly
affect the development of viable non-auto transpor-
tation. Alternatives to the single-occupant vehicle
cannot succeed if an auto-oriented low-density devel-
opment pattern continues. Ashland must be involved
in advocating regional land use patterns that support a
multi-modal transportation system.
10.09 Street System Goals
and Policies
GOAL (10.09.01)
To provide all citizens with safe and convenient trans-
portation while reinforcing the recognition of public
rights-of-way as critical public spaces.
POLICIES (10.09.02)
1) Provide zoning that allows for a mix of land uses
and traditional neighborhood development, which
promotes walking and bicycling.
2) Periodically review and revise street design
standards. Incorporate traditional neighborhood
design elements such as, but not limited to, plant-
ing strips, minimum necessary curb radii, alleys
Ashland must be
involved in advocat-
ing regional land use
patterns that support
a multi-modal trans-
portation system.
34 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 35
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
and skinny streets in standards. The street design
standards shall incorporate the land use and
design guidelines in the Street Classifications sec-
tion of this element.
3) Design streets as critical public spaces where
creating a comfortable and attractive place that
encourages people to walk, bicycle and social-
ize is balanced with building an efficient travel
corridor. Design streets with equal attention to all
right-of-way users and to promote livability of
neighborhoods.
4) Enhance the streetscape by code changes specify-
ing placement of critical design elements such as,
but not limited to, windows, doorways, signs and
planting strips.
5) Reduce excessive street pavement width in order
to facilitate convenient pedestrian and bicycle
circulation, to facilitate convenient pedestrian and
bicycle circulation, to reduce the costs of con-
struction, to provide for more efficient use of land
and to discourage excessive traffic volumes and
speeds.
6) Encourage a connected street network pattern,
as topography allows, to promote pedestrian and
bicycle travel. Off-street pathways should be
connected to the street network. Block perimeters
should be 1,200 to 1,600 feet and the distance
between streets should be a maximum of 300 to
400 feet.
7) Design the Land Use Ordinance to ensure Ashland
Street is developed as a multi-modal corridor
including attractive landscaping, sidewalks, bike
lanes and controlled access. Development along
Ashland Street shall be compatible with and sup-
port a multi-modal orientation.
8) Design the Land Use Ordinance to ensure that
Siskiyou Boulevard is developed as a multi-modal
corridor with sidewalk and bike lane facilities
appropriate to the volume and speed of motor
vehicle traffic.
9) Design the Land Use Ordinance to ensure that A
Street and B Street are developed as multi-modal
corridors. Development along A Street and B
Street shall be compatible with and support a mul-
timodal orientation.
10) When designing and funding facilities, consider
all the costs of automobile use compared with
using other forms of transportation. These costs
include social costs, and air, noise and water pol-
lution.
36 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 37
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
11) Advocate regional land-use patterns that support
multi-modal transportation.
12) Encourage the use of all modes of travel that con-
tribute to clean air and energy efficiency.
13) Integrate traffic calming techniques into city street
design standards to reduce automobile speeds
within new and existing neighborhoods.
14) Develop a process for traffic control management
for the systematic treatment of traffic problems
in the existing and future street network. Traffic
control includes general laws and ordinances, traf-
fic control devices and traffic calming techniques.
The process should include a regular inventory of
neighborhood traffic problems, at both intersec-
tion and other locations on the street, throughout
Ashland, and standards to identify conditions,
which need attention.
15) Develop a process for identifying and addressing
areas prone to traffic accidents.
16) Maintain carrying capacity, safety and pedestrian,
bicycle, public transit and motor vehicle move-
ment on boulevards, avenues and neighborhood
collectors through driveway and curb cut consoli-
dation or reduction.
17) Direct driveway access onto streets designated as
boulevards and avenues should be discouraged
whenever an alternative exists or can be made
available.
18) Require design that combines multiple driveway
accesses to a single point in residential and com-
mercial development.
19) Develop a process for evaluating the consistency
of curb cut requests with the Comprehensive Plan
and Land Use Ordinance.
20) Maintain street surfaces to achieve maximum
pavement life so that road conditions are good
and pavement maintenance costs are minimized.
Prioritize streets for repaying by factors such as
the level of use, street classification and pavement
condition.
21) Prohibit the formation of new unpaved roads.
22) Discourage development from occurring on
unpaved streets.
23) Off-street parking for all land uses shall be ade-
quate, but not excessive, and shall not interfere
with multi-modal street uses.
36 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 37
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
24) Manage the supply, operations and demand for
parking in the public right-of-way to encourage
economic vitality, traffic safety and livability of
neighborhoods. Parking in the right-of-way, in
general, should serve land uses in the immediate
area.
25) Reduce the number of automobile parking spaces
required for new development, discouraging
automobile use as the only source of access and
encouraging use of alternative modes.
26) Consider environmental impacts when developing
new street projects. Require new street projects to
reduce impact on terrain and natural vegetation.
27) Acquire or control parcels of land that may be
needed in the future for any transportation pur-
pose when the opportunity arises through sale,
donation or land use action.
28) Periodically assess future travel demand and
corresponding capacity requirements of street
network. Choose a comprehensive transportation
system approach to address any capacity insuf-
ficiencies that is consistent with the goals, policies
and philosophy of the Transportation Element of
the Comprehensive Plan.
29) Coordinate land use planning with transportation
planning. Integrate transportation-related func-
tions that involve several City departments so that
the goals, policies and philosophy of the Trans-
portation Element of the Comprehensive Plan are
consistently pursued in the transportation project
development process.
30) Coordinate City transportation planning with
county, regional, state and federal plans.
31) Coordinate the transportation planning efforts of
the adopted Ashland Downtown Plan with the
goals and policies of the Transportation Element
of the Comprehensive Plan, including the provi-
sion parking lots and parking structures.
32) Interconnections between residential neighbor-
hoods shall be encouraged for automobile, pedes-
trians and bicycle traffic, but non- local traffic
shall be discouraged through street design, except
for boulevards, avenues, and neighborhood col-
lectors. Cul-de-sac or dead-end street designs
shall be discouraged whenever an interconnection
alternative exists. Development or a modified grid
street pattern shall be encouraged for connecting
new and existing neighborhoods during subdivi-
sions, partitions, and through the use of the Street
Dedication map.
38 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 39
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
33) Plan for the full improvement of Hersey, Nevada
and Mountain Avenue as alternative routes to the
downtown area for north-south traffic.
34) Street dedications shall be required as a condition
of land development. A future street dedication
map shall be adopted and implemented as part of
the Land Use Ordinance.
35 Re-evaluate parking space size requirements due
to the increased use of smaller cars.
36) Encourage sharing of existing and future parking
facilities by various nearby businesses.
37) Require effective landscaping throughout con-
tinuous paved parking areas to increase shading,
screening and buffering aesthetics, and for perco-
lation of water into the groundwater table.
10.10 Pedestrian and Bicycle
Transportation
INTRODUCTION (10.10.01)
Habit, established by our nationwide dependence
on the automobile since the end of World War II,
accounts for most of the situations in which citizens
elect the automobile as a standard travel mode. Less
apparent reasons for these choices are the perception
of greater distance than actually exists and the pres-
ence of unsafe, unaesthetic or intimidating barriers to
travel that discourage people from walking or cycling.
Ashland residents make decisions about travel each
time they run errands, visit friends or attend events.
In most cases they choose their cars even when the
distances to be covered are relatively short. Although
40% of all trips made in Ashland are two miles or
less, and 25% are one mile or less, over 86% of trips
one mile or less are still made by automobile.
Like other cities, Ashland must reduce auto depen-
dence in the face of compromised air quality, traffic
congestion, and large subsidies for our road systems.
The community must avoid further increases in auto-
mobile traffic by expanding the number of short trips
made on foot or by bicycle.
Pedestrian and bicycle facilities must be improved and
promoted in Ashland to encourage residents to aban-
don their automobile for the sidewalk and the bikeway.
BENEFITS OF WALKING AND BICYCLING
(10.10.02)
“Families get to know one another better when there
are sidewalks. Without them, it is awkward to take a
walk. You feel youʼre intruding. A man walking along
a sidewalk appears to have a purpose; a man walking
in the street or across your front yard looks suspi-
86% of trips 1 mile
or less are made by
automobile.
38 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 39
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
cious... Without sidewalks, houses are just houses.
When sidewalks tie them together with a neat ribbon
of concrete, they become part of something more: a
neighborhood” (Pearce, 1980).
Walking and bicycling not only improve health and
well-being; they benefit the general public, motor-
ists, employers, the community and the environment.
Many positive effects result when residents walk and
bicycle instead of drive.
The number of people who regularly walk and bicycle
is one measure of a cityʼs quality of life. Businesses
benefit when people stroll and window-shop. Side-
walks provide places for casual socializing. The pres-
ence of pedestrians and bicyclists in the community
indicates that people feel safe and confident outdoors.
Walking and bicycling allow people to more directly
appreciate Ashlandʼs natural beauty.
PEDESTRIANS AND BICYCLISTS: DIFFER-
ENCES AND SIMILARITIES (10.10.03)
Although pedestrians and bicyclists do not have the
same travel behavior, they have been considered simi-
larly in the past. As bicyclists are routed on sidewalks
instead of the road, conflicts arise because they move
more rapidly than pedestrians. Motorists are often
confused when bicyclists enter or leave the traffic
stream at pedestrian crosswalks.
While walking and bicycling are both used for local
short trips, pedestrians and bicyclists have very dif-
ferent travel needs. Bicycles move faster than pedes-
trians but slower than automobiles. Since pedestrians
move more slowly, they require greater separation
from traffic and need extra time to cross roadways.
Both walking and bicycling are used for short trips
that can be accomplished in 20 minutes or less. Typi-
cally, this is one-half mile or less for pedestrians, and
three miles or less for bicyclists. Both pedestrians
and bicyclists are exposed to the elements, both are
sensitive to geographical barriers and both are vulner-
able to motor vehicles. Pedestrian and bicycle facili-
ties compete with “edge” right-of-way demands such
as on-street parking, utility poles and signs. Neither
walking nor bicycling requires a license.
Pedestrian and
bicycle facilities
must be routinely
considered as part
of the total design
on all transporta-
tion projects.
What happens when walking andbicycling replace vehicular trips?
• reduced accidents and property damage
• reduced air and noise pollution
• reduced consumption of petroleum resources
• reduced wear and tear on roads
• reduced light pollution and visual clutter
• reduced need for additional roads, travel lanes and parking
40 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 41
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
WALKWAY AND BIKEWAY DESIGN (10.10.04)
Two factors are critical in walkway and bikeway
design. Pedestrian and bicycle facilities must be
routinely considered as part of the total design on
all transportation projects. Furthermore, individual
walkways and bikeways must be designed to be safe,
convenient, attractive and easy to use.
The Oregon Bicycle and Pedestrian Plan and the
American Association of State Highway and Trans-
portation Officials (AASHTO) provide facility design
standards for walkways and bikeways. The follow-
ing is a brief summary of the basic design principles
included in the Oregon Bicycle and Pedestrian Plan.
PEDESTRIAN (10.10.05)
Sidewalks provide separation from traffic and all-
weather surfaces for pedestrians. Planted strips
between the sidewalk and roadway create an attrac-
tive environment by buffering pedestrians from traffic
and increase their comfort and safety by making the
street more inviting. Ideally, sidewalks should be pro-
vided on both sides of streets. Accessible sidewalks
must be available to people with disabilities unless
topography makes construction unfeasible. Special
attention must be given to curb ramps and vertical
clearance.
Accessible walkways must be conveniently tied into
adjacent development walkways.
BICYCLE (10.10.06)
The type of bikeway provided on a street should be
based on the motor vehicle traffic volumes and speeds
that share the roadway. Bike lanes are the appropriate
facility for bicyclists on boulevards and avenues. Bike
lanes help define the road space, provide bicyclists
with obstruction-free paths, decrease bicyclistsʼ stress
in traffic and remind motorists of cyclistsʼ right to the
road. A shared lane is appropriate on neighborhood
collectors and streets because of the low traffic vol-
umes and travel speeds.
On existing roadways where bike lanes are not pos-
sible due to constraints such as buildings or envi-
ronmentally sensitive areas, the Oregon Bicycle and
Pedestrian Plan recommends a wide outside lane and
reduced actual travel speeds of 25 m.p.h, or less. This
option, however, is recommended only after alterna-
tives, such as narrowing or removing travel or parking
lanes, are examined.
NEIGHBORHOOD CONNECTORS (10.10.07)
Neighborhood connectors are off-road, separate
pedestrian and/ or bikeways that minimize travel
40 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 41
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
distances within and between residential areas and
schools, shopping and workplaces. In most cases,
walkways and bikeways should be provided along
streets in a well-connected street network.
Neighborhood connectors are used in situations where
street connections are infeasible. For example, these
short multi-use paths are useful to connect cul-de-sac
streets and dead ends, and to allow passage through
areas with topographical constraints. In Ashland for
example, the Talent Irrigation District (TID) right-of-
way could provide pedestrian and bicycle connections
for areas on steep hillsides that are otherwise inacces-
sible by roads. Historically, the TID right-of-way has
been used as an unofficial neighborhood connector.
EFFECTIVE WALKWAYS AND BIKEWAYS
(10.10.08)
A street network should serve the transportation needs
of everyone in the community. Well-worn dirt paths
where sidewalks would usually be, as well as bicy-
clists riding on sidewalks, demonstrate that pedestri-
ans and bicyclists use streets even if no facilities exist.
In Ashland, the street network is the primary transpor-
tation infrastructure with most destinations oriented to
the street. With the most direct and convenient travel
routes, this network logically should contain pedes-
trian and bicycle travel corridors where walkers and
cyclists will be more visible than they are on separate
pathways. Incorporating these corridors into the street
network is economical and efficient and reduces the
need for additional easements or maintenance.
According to Oregon Bicycle and Pedestrian Plan,
effective walkway and bikeway networks depend on:
• accommodating pedestrians and bicyclists on bou-
levards, avenues and neighborhood collectors
• providing appropriate facilities
• creating and maintaining a grid system of closely
spaced, interconnected neighborhood streets
• overcoming barriers such as freeway crossings,
railroad tracks, intersections, rivers and canyons
The Oregon Transportation Planning Rule requires
boulevards and avenues, the backbone of the urban
transportation system, to accommodate pedestrians
and bicyclists. Major streets provide direct, continu-
ous and convenient access to most destination points
because they move traffic through the street system. In
addition, they provide signalized crossings and bridge
obstacles such as rivers, freeways and railroad tracks.
Cyclists and pedestrians tend to use the shortest,
most convenient route to travel to their destinations.
Major streets provide direct travel routes for pedestri-
42 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 43
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
ans, bicyclists and motorists alike. If walkways and
bikeways are not provided on major streets, negative
consequences such as the following may occur:
• Many pedestrians and cyclists will choose to stay
on the thoroughfare, even without sidewalks or
bike lanes. This can cause safety problems and
traffic delays.
• Some motorists will not respect bicyclists or
pedestrians who are perceived to be “riding or
walking where they donʼt belong.”
• Circuitous bike route signing will be ignored by
bicyclists. As a result, other bicycle signing is not
respected.
• The importance of bicyclists and pedestrians in
the transportation network is diminished.
EXISTING WALKWAYS AND BIKEWAYS
(10.10.09)
Most of the boulevards (North Main Street, East Main
Street, Lithia Way, Siskiyou Boulevard, Ashland
Street and North Mountain) have sidewalks on both
sides within the city limits. Avenues, neighborhood
collector streets and neighborhood streets, however,
lack continuous sidewalks in many places. Boule-
vards such as East Main Street, Ashland Street from
Siskiyou Boulevard to Interstate 5, and Siskiyou
Boulevard from Walker Avenue to Tolman Creek
Road have bike lanes on both sides. Avenues such as
Hersey Street, Walker Avenue from Ashland Street
to East Main Street and Tolman Creek Road from
the north city limits to Siskiyou Boulevard have bike
lanes on both sides. However, similar to the sidewalk
situation, the bike lanes are not continuous.
A bikeway system map identifying existing bicycle
facilities and future proposed bike lanes, shoulder
lanes, shared lanes and bike paths was adopted by the
City Council in June 1995.
Future transportation projects, including pedestrian
and bicycle facilities, currently planned and funded
are described in Appendix A.
PEDESTRIAN AND BICYCLE NEEDS
(10.10.10)
Ashland citizens have contributed to an assessment of
local transportation needs in many forums. To address
their concerns, the city held neighborhood meetings
from February to April 1994. At these meetings citi-
zens identified a variety of service and facility needs.
Comments ranged from general suggestions, such as
“keep bike lanes free of debris,” to the site specific
such as “difficult crossing Siskiyou at SOSCʼ. Appen-
dix B contains a complete list of neighborhood meet-
ing comments.
42 transportation element
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
transportation element 43
Printed July 2005
City of ASHLAND, OREGON
COMPREHENSIVE PLAN
Ashland has many characteristics, which make walk-
ing and bicycling viable transportation options. It
covers an area roughly six square miles in size, which
makes most in-town travel by bicycle possible within
20 to 30 minutes. The 1990 Census indicates that
Ashland had one of the highest percentages of resi-
dents walking to work of all cities in Oregon. Many
of the older neighborhoods such as the Railroad Dis-
trict are compact and have sidewalks in place. Most
of the city is within bicycling distance of commercial
centers, including the downtown core.
Ashlandʼs goal is to increase the number of short trips
made by walking and bicycling. Even though 49%
of all trips are within walking or bicycling distance,
national statistics show only 7.2% of all trips are by
walking and 0.7% by bicycling. In order to determine
how walking and bicycling can be increased, three
questions must be addressed:
• Who is or will be making short trips?
• Where are people going?
• What makes people drive?
10.11 Who is or will be
making short trips?
FUTURE POPULATION AND EMPLOYMENT
(10.11.01)
Pedestrian and bicycle systems in Ashland must
accommodate both future population changes and
employment conditions. Ashlandʼs official popula-
tion projection for the year 2005 is 20,000, with an
employment to total population ratio of approximately
39%. Historically, the majority of employment has
been in the service and retail sectors.
An addition of 2,225 people from 1995 to 2005 is
equivalent to approximately 820 households. If current
transportation trends continue at ten-vehicle trips per
household per day, 820 new households would gener-
ate roughly 8,200 additional vehicle trips each day.
Ashland demographics vary from typical patterns in
several ways. Between now and 2005, the greatest
population increase will occur in the 35 to 65 year
old age group, the mature work force. While this
trend matches existing trends in Jackson County, the
SOSC student population results in a disproportionate
amount of people in the 15 to 29 year old age group.
The tourist population is also rather unique in
Ashland. In 1988, the average daily tourist population
in Ashland was 1,476, and in 1989 there were 873
travelerʼs accommodation units. Even if tourists made
only one-half the number of vehicle trips made by a
household, they could still generate approximately
4,365 additional vehicle trips each day. Since the tour-
ist market is centered at the Shakespeare Festival and
in the downtown area, walking is a viable option. The
In order to main-
tain quality of life,
Ashland pedestrian
and bicycle systems
must keep pace with
population and eco-
nomic growth.