City of Walnut Creek. Pedestrian Master Plan. Prepared for: Prepared by: 100 Pringle Avenue, Suite 600 Walnut Creek, CA (925)

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1 Prepared for: Prepared by: 100 Pringle Avenue, Suite 600 Walnut Creek, CA (925) City of Walnut Creek Pedestrian Master Plan Public Review Draft April 2015

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3 Table of Contents 1. INTRODUCTION...1 Overview... 1 Vision Statement... 1 Planning Process... 2 Public Outreach Process POLICY FRAMEWORK...6 Policy Document Review... 7 Goals, Policies, Actions... 8 Overview of Pedestrian Zone Typologies EXISTING CONDITIONS ANALYSIS Land Use Demographics Existing Conditions by Pedestrian Zone PEDESTRIAN IMPROVEMENT CONCEPTS Identification of Key Issues and Opportunities SUPPORT PROGRAMS Safety and Education Encouragement and Promotion Law Enforcement Monitoring and Evaluation IMPLEMENTATION PLAN Overview Project Identification and Delivery Cycle Short-Range ( ) Implementation Steps Overview Funding Programs i TABLE OF CONTENTS

4 Appendices Appendix A: ATP Compliance Checklist Appendix B: Funding Sources Appendix C: Walking-Related Policy Statements in the General Plan Appendix D: Existing Conditions Analysis Memoranda Appendix E: Crosswalk Guidelines Appendix F: Walking Audit Findings ii TABLE OF CONTENTS

5 List of Figures Figure 2-1 Citywide Pedestrian Zone Typologies Figure 3-1 Existing Land Uses Figure 3-2 Pedestrian Collision Analysis Figure 3-3 Pedestrian Connectivity Analysis Figure 3-4 Pedestrian Demand Analysis Figure 4-1 Design Guideline Cut Sheet: Pedestrian Retail District Figure 4-2 Design Guideline Cut Sheet: Urban Core Figure 4-3 Design Guideline Cut Sheet: Commercial Corridor/Employment Centers Figure 4-4 Design Guideline Cut Sheet: School/Residential Areas Figure 4-5 Design Guideline Cut Sheet: Parks/Trails Figure E-1: Crosswalk Marking Flowchart for Uncontrolled Locations (Not Applied within School Areas) Figure F-1 Parkside Drive Transit and Urban Core Access (Walk Audit #1) Figure F-2 North Main Street Commercial Corridors, Trail Access (Walk Audit #2) Figure F-3 Civic Drive Urban Core, Parks, Trail, and School Access (Walk Audit #3) Figure F-4 Cedro Lane School Zone in Residential Neighborhood (Walk Audit #4) Figure F-5 Walnut Boulevard School Zone and Commute Corridor in Rural Context (Walk Audit #5) iii TABLE OF CONTENTS

6 List of Tables Table 3-1: Population Age Groups Table 3-2: Existing Mode Split for Commute Trips Table 3-3: Travel Mode to Pleasant Hill and Walnut Creek BART Stations Table 3-4: Walnut Creek Collision Rankings AMONG Similar California CITIES, Table 3-5: Corridors with 10 or more Pedestrian Collisions between 2004 and Table 3-6: Intersections with Three or More Pedestrian-Involved Collisions 2004 to Table 4-1 Identification of Walk Audit Key Issues Opportunities Table 4-2 Summary of Opportunities Potential Solutions by Pedestrian Zone Table 4-3 Design Guidelines by Pedestrian Zone Summary Table 6-1 Short-Range Action Plan, Table 6-2 Sample Project(s) from Walk Audit Findings Table A Active Transportation Plan Guidelines Addressed in this Plan Table B-1 Regional Funding Source Applicability Matrix Table E-1: Category A: Two Lane Streets (Meeting Requirements of Flowchart on Page 131) Table E-2: Category B: Three Lane Streets (Meeting Requirements of Flowchart on Page 131) Table E-3: Category C: Four or More Lanes with a Raised Median (Meeting Requirements of Flowchart on Page 131) Table E-4: Category D: Four or More Lanes without a Raised Median (Meeting Requirements of Flow Chart on Page 131) iv TABLE OF CONTENTS

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9 Overview This Walnut Creek Pedestrian Master Plan (the Plan) provides a comprehensive framework for pedestrian facilities and programs Citywide. This document is intended to be a living document that will be updated by the City of Walnut Creek to maintain consistency with best practices in pedestrian policy, planning, and design. The Plan is organized into two sections: 1. Big Picture Pedestrian Policies that will guide the City s walking programs and projects through many future iterations of the Plan 2. Short-Range and Long Range Pedestrian Action Plans to establish clear implementation steps on an iterative, fiveyear planning cycle This Plan includes six key elements: Policy Framework provides Citywide policies and actions to guide practices and programs for pedestrians (Chapter 2) Existing Conditions provides demographic, land use, and overall pedestrian safety audit for Walnut Creek in addition to pedestrian demand and pedestrian connectivity analyses. (Chapter 3) Pedestrian Improvement Concepts, including Design Guidelines presents key issues, opportunities, and potential solutions in each of the City s pedestrian zones (Chapter 4) Support Programs documents the City s existing pedestrian education, encouragement, and enforcement programs and presents potential enhancements. (Chapter 5) Implementation Plan details the next steps, key milestones, and process for implementing pedestrian improvements and programs Citywide for the Short-Range and Long-Range Action Plans. (Chapter 6) Crosswalk Improvement Guidelines provides a comprehensive citywide policy for installing, enhancing, and removing marked crosswalks. (Appendix E) Vision Statement The vision is an overarching statement describing what walking in Walnut Creek could be like in the future if the Plan is successfully implemented. It is intentionally ambitious, designed to challenge and inspire the City and the public. The vision statement for the Plan is as follows: Walnut Creek will provide safe, convenient and well-maintained pedestrian facilities that are accessible to people of all ages and abilities as part of complete streets and a multi-modal transportation network. The Vision Statement is supported by this broader statement of purpose: The broader purposes are to promote healthier lifestyles, support economic development, foster social interaction and people s connection to the built and natural environment, reduce car dependence, decrease air pollution and enhance the reputation of the City as a leader in creating a walkable community. 1 CHAPTER 1: INTRODUCTION

10 Pedestrian Zone Framework To recognize the diversity of pedestrian environments in Walnut Creek, an organizing framework of pedestrian zones is used in the Plan. Five pedestrian zones were identified in Walnut Creek: 1. Pedestrian Retail District 2. Urban Core 3. Commercial Corridors 4. Schools/Residential Areas 5. Parks/Trails Planning Process The Walnut Creek Pedestrian Master Plan process was initiated by the city in early A Technical Advisory Committee (TAC) comprised of key stakeholders from multiple agencies, including the BART, the Walnut Creek School District, the Downtown Business Association and Rossmoor community, aided the planning process. Local residents and business owners also participated in the process through public workshops and walking audits. Public Outreach Process The City provided a variety of venues for stakeholder engagement: Community workshops Walking audits Public Hearings and TAC Meetings Information about each event is detailed below. Community Workshops October 2013 Workshop The City hosted the first of two public workshops in October 2013 to solicit input and feedback from the community on the existing pedestrian issues and opportunities throughout the City. The workshop consisted of a presentation and group break-out exercises to discuss: Existing conditions for pedestrians Key opportunities to improve pedestrian conditions Visions and goals to guide pedestrian policy Citywide Workshop attendees identified the pedestrian connection to the Walnut Creek BART Station as a top priority, as well as removing existing barriers to both BART stations and improving pedestrian safety as key issues. Additionally, many residents identified barriers to walking in residential neighborhoods, including to schools, such as a lack of sidewalks or other walkways, which may result from narrow shoulders or culverts lining some neighborhood roadways. May 2015 Workshop <Placeholder> Public Meetings Public Survey 2 CHAPTER 1: INTRODUCTION

11 <Placeholder> Ultimately, five locations were chosen: Walking in Walnut Creek: Accessibility for All Ages and Abilities The Walnut Creek Pedestrian Master Plan addresses walking issues and the needs of pedestrians throughout the city. When the words pedestrian or walking are used in this Plan, they are intended to be inclusive of those with a variety of abilities. This includes those in wheelchairs or using other assistance devices to get around Walnut Creek. Walk Audits In April 2014, the City hosted five walk audits. Locations were selected to reflect the range of pedestrian zones in the City. The final audit locations were selected in coordination with City staff and the TAC through a prioritization exercise that evaluated potential locations based on: 1. Parkside Drive between Hillside Court and Civic Drive 2. North Main Street between Parkside Drive and Treat Boulevard 3. Civic Drive between Broadway and Parkside Drive 4. Cedro Lane between Wiget Lane and Oak Road 5. Walnut Boulevard between Walker Avenue and Walnut Heights Elementary School Issues, opportunities, and potential solutions identified in each of the walk audits are presented in detail for each walking route in Appendix F, and generalized findings are presented in Chapter 4, Improving Pedestrian Conditions. Recommendation already identified in previous planning studies Pedestrian-safety hot spots High-demand pedestrian locations (based on Pedestrian Demand Analysis presented in Chapter 3, Existing Conditions) Above: Walk Audit on Cedro Lane near Walnut Acres Elementary School and Foothill Middle School. High or limited pedestrian network connectivity (based on Pedestrian Connectivity Analysis presented in Chapter 3) Location along key route to school Location along key route to transit 3 CHAPTER 1: INTRODUCTION

12 Above: Walk Audit on Civic Drive near Walnut Creek Intermediate School and the Iron Horse Trail. Public Survey A survey was conducted to receive input from the public on key areas of concern related to pedestrian access throughout the City. The survey was available online through the Walnut Creek Pedestrian Master Plan website, and 195 responses were received. The comments provided valuable input on areas of focus, which included providing sidewalks on key routes to schools, more landscaping to provide better sidewalk shading, and improving conditions along existing sidewalks, such as lack of lighting and long wait times at intersections. The survey results also provided input on which areas pedestrians most enjoy in Walnut Creek. The key features from these areas have been incorporated into the design recommendations for each pedestrian zone. Chapter 4 contains more information on the survey results. Public Hearings, Including TAC Meetings <Placeholder> 4 CHAPTER 1: INTRODUCTION

13 Above: Public website for Walnut Creek Pedestrian Master Plan. 5 CHAPTER 1: INTRODUCTION

14 6 CHAPTER 2: POLICY FRAMEWORK

15 The purpose of a policy framework is to guide the preparation of the Plan and guide the decisions and actions of public officials, agency staff, and other stakeholders as they work to implement the Plan. This policy framework also provides policy support for encouraging walking and helps define the roles and responsibilities of various City departments. Terms such as pedestrian and walking as used in this document are meant to include a broad range of sidewalk users, including users of wheelchairs, electric mobility scooters and other vehicles for seniors and people with disabilities that may be legally used on sidewalks, and also people with strollers or carts. Policy Document Review This policy framework is based on a review of the main policy documents relevant to walking in Walnut Creek to ensure that the Plan s policy framework reflects, is consistent with, or as necessary refines policy statements from key related plans. In particular, the Plan s policy framework seeks to refine and provide greater specificity to pedestrian-related policies found in the most important of these plans, the City s General Plan. The General Plan, as the City s comprehensive planning document, must address a multitude of issues and topics and do so with the entire City in mind. As such, the General Plan is most able to provide general guidance. The City relies on specific plans and topical plans to provide more detailed policies on narrower issues and topics. The goals and policies in this Plan policy framework reflect the key pedestrian-related themes addressed in the General Plan, namely safety for pedestrians and the importance of a pedestrian-friendly built environment, particularly in the Downtown. The documents included in the background review are listed below. All documents were prepared by or for the City of Walnut Creek, except the Contra Costa Countywide Bicycle and Pedestrian Plan, which was adopted by the Contra Costa Transportation Authority (CCTA). General Plan 2025 (adopted in 2006): Expresses the desires of the Walnut Creek community regarding the City s future physical, social, economic, cultural and environmental character. Because the General Plan is the City s most important planning document and because it is a particularly policy-rich document, Appendix C of this Plan includes the main policy statements in the General Plan that are related to walking (most of them appear in the Built Environment and Transportation chapters of the General Plan). Pedestrian Safety Assessment (2008): Includes a safety record analysis; an evaluation of City policies and current practices; and, based on a walk audit, identifies concerns and recommends safety enhancements at more than 20 specific locations in the Downtown. Pedestrian Safety Action Plan (2011): Expands on the Pedestrian Safety Assessment; recommends, assigns and prioritizes policies, practices and programs to improve pedestrian safety. Complete Streets Compliance (2012): Expresses the City s commitment to plan, design and operate its streets to serve, within reason, all types of users. Climate Action Plan (2012): Outlines the City s approach to reducing its greenhouse gas emissions and mitigating the impacts of climate change locally. CHAPTER 2: POLICY FRAMEWORK 7

16 ADA (Americans with Disabilities Act) Transition Plan Amendment (2005): Evaluates the City s services, policies and practices and recommends ways to make them accessible to individuals with disabilities. West Downtown Specific Plan (in progress): Will define a vision for the area roughly bounded by Ygnacio Valley Rd., California Blvd., Olympic Blvd. and I-680, and provide a regulatory framework for future development and public improvements. Walnut Creek BART Station Access Study (2013): Identifies opportunities to improve access to the BART station by all modes of transportation. Note that the Study had not been formally adopted. Amended Pleasant Hill BART Station Area Specific Plan (1998): Establishes land use, transportation and urban design guidance for the development of property in the area surrounding the station. Creeks Restoration and Trails Master Plan, Volumes 1, 2 and 4 (1993). Volume 1 is the Summary Master Plan; Volume 2 is the Trails Plan proper; and Volume 4 addresses implementation. Contra Costa Countywide Bicycle and Pedestrian Plan (2009): Defines a countywide bicycle network; provides planning, design and implementation tools and other resources to local jurisdictions regarding bicycle and pedestrian facilities, access to transit, and safety, promotion and education programs; and establishes evaluation criteria for allocating CCTA funds. As outlined below, the proposed policy framework for this Plan consists of a vision statement, five goals and, under each goal, several policies and actions. Goals, Policies, Actions Together, the goals, policies and actions are meant to support achievement of the vision for walking in Walnut Creek. In addition to interdepartmental cooperation within the City, the City will need to rely on the cooperation of other agencies, especially the County, the Contra Costa Transportation Authority, and adjoining jurisdictions to accomplish the goals, policies and actions. The full implementation of the Plan will also require funding from a variety of sources, and prioritization based on the program outlined in Chapter 6. The goals are broad statements of purpose outlining the general ends that the City hopes to achieve by implementing the Plan. As such, they establish the areas in which the City should concentrate its efforts related to walking. Four of the goals deal with distinct aspects of walking; the fifth goal addresses not a thematic area but rather a geographic one: the Downtown. This is in recognition of the Downtown s special role and complex needs as a premier walking destination and environment for Walnut Creek residents, employees and visitors. 1. Provide a Citywide network of walking routes and facilities connecting all destinations 2. Create a built environment that accommodates and facilitates pedestrian travel 3. Improve pedestrian safety and awareness through engineering, education and enforcement 4. Provide a suite of support programs that promotes walking 8 CHAPTER 2: POLICY FRAMEWORK

17 5. Maintain the Downtown and surrounding core area as a premier walking destination. Appendix C documents the pedestrian-related policy statements currently included in the City of Walnut Creek s General Plan. Policies and actions that are also included in the General Plan have the corresponding policy or action number cited. It is important to note that the City is already targeting and working on issues pertaining to many of these Goals and Actions. The policies are more concrete statements that add specificity and detail to each of the goals; the actions are implementable steps for carrying out the goals. Goal Provide a Citywide network of pedestrian routes and facilities connecting all destinations Policy 1.1: Provide safe, pleasant, convenient and accessible pedestrian routes linking residential neighborhoods, transit stations and stops, parks and open spaces, employment centers, the Downtown Core, and other key destinations. (GP Policy 6.1) Policy 1.2: Provide continuous sidewalks and safe pedestrian facilities at intersections and crossings as part of Safe Routes to School, to enable and encourage children to walk to school. (GP Action 6.1.2) Policy 1.3: Close gaps in the pedestrian network and overcome physical barriers or other obstacles to provide pedestrian access and improve pedestrian connectivity. (GP Action 6.1.4) Policy 1.4: Design pedestrian facilities to be context-sensitive and respond to the different built environments throughout the City, such as the Downtown, parks and open space, and single-family residential neighborhoods. Policy 1.5: Consistent with complete streets principles, incorporate pedestrian improvements or amenities as part of streetwidening, new development projects, and other transportation investments. Policy 1.6: Continue to require that property owners provide full-frontage curb and sidewalk improvements in all commercial areas and as a condition of site development, use permit, design review, subdivision or building-permit approval, consistent with municipal ordinances. Policy 1.7: Consider easements for pedestrian improvements for sidewalks and other pedestrian facilities when utility rightsof-way, drainage, or other corridors are established or enhanced. (GP Policy 6.3) Policy 1.8: Collaborate with other agencies and jurisdictions to submit grant-funding applications, and to implement a continuous network of multi-user trails, sidewalks and other facilities for pedestrians. (GP Policy 2.2) Policy 1.9: Recognize pedestrian improvements proposed in development projects as a way to encourage walking and reduce single occupancy vehicle trips. Action 1.1: Update the City s Design Review Guidelines and Street Standards to CHAPTER 2: POLICY FRAMEWORK 9

18 accommodate pedestrians and improve the functionality, safety and attractiveness of sidewalks, crosswalks and other pedestrian amenities. (GP Action 6.2.3) Action 1.2: Update the City s ADA Transition Plan to reflect new accessibility guidelines and requirements, and ensure that public pedestrian facilities are accessible to users of differing physical abilities. (GP Action 6.4.4) Action 1.3: Review and update policies for installing new sidewalks and pedestrian facilities throughout Walnut Creek to address existing gaps. (GP Action 6.1.1) Action 1.4: Review and revise as necessary the City s guidelines for stormwater management devices to ensure that they maximize opportunities for the installation of street trees and other landscaping while maintaining walkability and convenient pedestrian circulation. Action 1.5: Identify criteria and considerations related to pedestrian safety, demand and other key aspects of walking for prioritizing pedestrian improvements as part of the CIP. (GP Action 6.1.3) Action 1.6: Pursue grant funding and develop inter-agency programs to improve pedestrian connectivity and safety. Above: Spurs between the Iron Horse Trail and City streets increase the connectivity of the pedestrian network and enhance access to the regional trail system. Goal Create a built environment that accommodates and facilitates pedestrian travel Policy 2.1: Implement policies in the City s General Plan and Specific Plans that encourage higher-density, mixed-use development (incorporating residential and commercial uses) near transit and employment centers to reduce single vehicle trips and encourage non-motorized travel. Policy 2.2: Implement the station area plans and transit-oriented development plans, including recommendations for improved access, for the Walnut Creek and Pleasant Hill BART stations. (GP Action 2.3.2) Policy 2.3: Enhance the urban design and streetscape character of the City s commercial corridors and major thoroughfares by encouraging appropriately scaled buildings, public art, landscaping and other pedestrian amenities that create an 10 CHAPTER 2: POLICY FRAMEWORK

19 enjoyable pedestrian environment and help beautify the public realm. Policy 2.4: Improve the attractiveness and character of the City s neighborhood shopping centers by incorporating pedestrian facilities, and expand these facilities to the surrounding residential areas to provide convenient pedestrian connections. (GP Policy 2.1.1, Action 2.1.1) Action 2.1: Revise the City s Design Review Guidelines to encourage pedestrian-oriented site planning, pedestrian-scale building design, new street landscaping and new public art. (GP Action 6.3.1, Action 6.3.3, Action ) Action 2.2: Update the City s Complete Streets Development Review Checklist to ensure adequate and consistent pedestrian facilities when reviewing new development projects in the City to ensure pedestrian facilities and amenities are provided. (GP Action ) Action 2.3: Revise the City s zoning regulations to unbundle parking and allow shared parking between multiple land uses. Consider other ways to reduce the required numbers of parking spaces in development projects, including the development of transportation demand management (TDM) programs. Above: Example of Walnut Creek s existing organized sidewalk zones and pedestrian environment in Downtown. Goal Improve pedestrian safety and awareness through engineering, education and enforcement Policy 3.1: Reduce pedestrian collisions by prioritizing pedestrian improvements at locations with high collision rates. Policy 3.2: Prioritize and enhance pedestrian visibility at mid-block crosswalks and roadway intersections including through adequate, pedestrian-oriented lighting to improve visibility and increase pedestrian awareness. Policy 3.3: Partner with the local school districts, parent teacher associations, private CHAPTER 2: POLICY FRAMEWORK 11

20 schools and other institutions to improve pedestrian facilities and deliver programs focused on walking safely to school. (GP Action 6.1.2) Policy 3.4: Incorporate pedestrian improvements to ensure that the safety and accessibility needs of seniors and people with disabilities are met. Policy 3.5: Address pedestrians needs and concerns related to personal security from criminal activity, dogs or other real or perceived threats particularly at night and on trails. Action 3.1: Develop and implement a trafficsafety and education programs, potentially targeting unsafe and illegal behavior such as speeding, not stopping for or yielding to pedestrians, jaywalking and bike-riding by adults on sidewalks. Action 3.2: Adopt and implement a policy and guidelines to address the installation and removal of marked crosswalks Citywide and also their enhancement using such features as sidewalk bulb-outs, in-pavement flashers, refuge islands, raised crosswalks, specially colored and textured pavement and signaltiming adjustments. Action 3.3: Where feasible, consider reassigning existing roadway space to install bulb-outs, high visibility crosswalks, walkways, and/or other features to make streets safer for pedestrians to cross and walk along. Action 3.4: Create an online request form for traffic enforcement and pedestrian safety improvements. Action 3.5: Deploy speed trailers, as an awareness and educational tool, on streets with a history of speeding complaints, and create a radar-gun check-out program for trained community volunteers. Action 3.6: Engage seniors and students, as the most vulnerable users, in pedestrian safety education and prioritize pedestrian infrastructure improvements and maintenance near schools, senior centers, and similar uses. Action 3.7: Develop pedestrian-scale streetlight standards and a prioritized plan for installation at key locations across the City, such as high pedestrian demand areas, along trails, under overpasses, near transit, and at marked crosswalks. Goal Provide a suite of support programs that promotes walking Policy 4.1: Coordinate with the county and regional agencies and organizations to implement programs that promote walking as a safe, convenient and healthy mode of transportation. Policy 4.2: Support and complement efforts by the local school districts to implement Safe Route to School events and activities that promote walking to school by students and school staff. (GP Action 6.1.2) Policy 4.3: Coordinate and support programs developed by BART, 511 Contra Costa and County Connection that promote walking. 12 CHAPTER 2: POLICY FRAMEWORK

21 Action 4.1: Support community events by allowing conversion of certain streets to temporary use by pedestrians, particularly in the Downtown. (GP Action 9.2.1, Action ) Action 4.2: Establish a policy that prioritizes walking and transit use to reduce singleoccupancy auto trips in the Downtown and to the BART stations, employment centers and other key destinations. (GP Policy 9.1, Policy 9.2) Action 4.3: Provide information on the City s website and at City facilities that promotes and encourages walking. Action 4.4: Work with community organizations to develop materials such as online and print maps and brochures, audio tours, plaques and wayfinding signage to promote walking tours of key historic and other sites around the city, particularly in the Downtown. Action 4.5: Establish a Citywide Transportation Demand Management (TDM) Ordinance to incentivize and promote walking and other non-motorized commute alternatives to reduce single occupancy vehicle trips, reduce auto emissions and encourage active transportation modes. features to create pedestrian interest and help maintain pedestrian-orientation at street level. (GP Action 6.3.1, Policy 20.2) Policy 5.2: Support and expand the City s park once and walk policy through the addition of new bicycle and pedestrian facilities, transit routes and centralized parking areas that encourage people who drive Downtown to park and make the rest of their trip using non-auto transportation options. (GP Action ) Policy 5.3: Provide high-quality pedestrian amenities in the Downtown, including landscaping, pedestrian-oriented lighting, fountains, public art, and transit shelters. Policy 5.4: Improve and expand the pedestrian connections including public and private paseos between the Downtown and the BART stations, surrounding residential neighborhoods, and nearby trails to enhance connectivity and provide greater pedestrian access. (GP Action , Action 2.3.1, Action 2.3.2) Policy 5.5: Evaluate ways to enhance the service and effectiveness of the free downtown shuttle and other transit routes. (GP Action ) Goal Maintain the Downtown and surrounding core area as a premier walking destination Policy 5.1: Encourage a mix of residential and business uses that provide smaller-scale building footprints and varied architectural CHAPTER 2: POLICY FRAMEWORK 13

22 Above: Downtown Walnut Creek is a pleasant, highly walkable neighborhood within the City. Action 5.1: Update Design Review Guidelines, Street Standards, and other adopted plans to enhance the Downtown s urban, pedestrian-oriented character. (GP Action ) Action 5.2: Expand the City s Street Standards to establish guidelines for roadways, alleys, paseos and mid-block cutthroughs, to provide more public space for pedestrians. Action 5.3: Create flexible development regulations that encourage landowners to provide additional public space in the form of plazas, pocket parks and other areas for gathering. (GP Action 6.2.3) Action 5.4: Continue to review the time limits and rates of the Downtown s parking meters to ensure they support the park once and walk policy. Overview of Pedestrian Zone Typologies Pedestrian environments vary throughout Walnut Creek. For this reason, different areas are described in terms of typologies or zones in this Plan. Five typologies have been identified within Walnut Creek: Pedestrian Retail District: This District consists of shopping areas centered around Main Street and Locust Street, south of Civic Drive. The goal for this area is to support and enhance it as a premier walking environment for Walnut Creek, accommodating high levels of pedestrian activity and correspondingly providing a high degree of amenities. Core Area: The Urban Core surrounds the Pedestrian Retail District and includes the Walnut Creek BART Station. Bordered by Ygnacio Valley Road, I-680, Newell Avenue, and Broadway, this area includes significant employment centers and multi-family housing. The goal is to be rich in connectivity, allowing employees and residents convenient walking access to nearby services, amenities, transit, and trails. Commercial Corridors: Walnut Creek is a major employment center and has many commercial areas in and near the Core Area and the two BART stations. The goal for these zones is to enhance the pedestrian network, making it easier to walk between the commercial and residential zones. Schools/Residential Areas: Schools in Walnut Creek are typically located in or near residential areas and most have neighborhood-based enrollment. The goal for these zones is to promote safe walk and roll routes for students of all ages. Improvements should be contextually sensitive to Walnut Creek s diverse residential neighborhoods. Parks/Trails: Walnut Creek has an abundance of popular parks, trails, and open spaces. The goal for these zones is to enhance pedestrian access to trails from adjacent neighborhoods and across barriers. Figure 2-1 identifies the five typologies throughout the City. For each of these areas, the following types of issues are considered: Sidewalks, Walkways, and Pathways: Within an urban area, sidewalks should be provided where feasible. In lower density residential or rural contexts, sidewalks or other designated walkways should be 14 CHAPTER 2: POLICY FRAMEWORK

23 provided around schools, transit stops, parks, and along mixed-use commercial corridors. Providing sidewalks and walkways will increase the safety and convenience of walking for all users. Paseos, path spurs, and pedestrian connections at cul-de-sacs enhance connectivity in a variety of contexts. Intersection Crossing Treatments: Welldesigned street crossings are vital for improving pedestrian mobility and connecting neighborhoods. Well-marked, high visibility pedestrian crossings accomplish dual goals: They prepare drivers for the likelihood of encountering a pedestrian, and they create an atmosphere of walkability and accessibility for pedestrians. Crossing treatments at controlled intersections, uncontrolled intersections, and mid-block desire lines should all be considered. ADA Access: The United States Access Board is the federal agency in charge of developing accessibility guidelines for persons with disabilities. According to ADA guidelines, sidewalk curb ramps should have both a ramp and detectable warnings (also known as truncated domes) to ensure access between the sidewalk and street for people with disabilities. Two ramps should ideally be provided per corner, with the ramps oriented parallel to the crosswalks. The ADA also establishes guidelines on the pedestrian crossing time at signals. Both the Access Board Guidelines and the 2014 California Manual of Uniform Traffic Control Devices (CA MUCTD) recommend setting pedestrian signals based on a maximum of 3.5 feet/second walking speed (rather than the previously used 4.0 feet per second). High Traffic Volumes and High Speed Traffic: High volumes of traffic and speeding traffic can negatively affect the pedestrian experience, and are primary indicators for the severity of a pedestrian injury as the result of a collision. On streets such as these, providing a buffer between the sidewalk and moving traffic is important to maximize safety and comfort. Buffers can include landscaping strips or street trees, bike lanes, or parked cars. In addition, at crossing locations vehicle speeds and sight distance should be controlled through design measures and/or signal enhancements to reduce the potential for conflicts. Linear Barriers: Linear barriers physically cut off walking paths, such as with fences, elevated structures or railroad tracks. Pedestrian paths across these barriers are provided in limited locations, forcing pedestrians to travel longer distances to reach their destinations. Large arterials that carry high-speed traffic can also be considered barriers to walking. These barriers affect connectivity as was documented in the connectivity analysis discussed in the next Chapter. CHAPTER 2: POLICY FRAMEWORK 15

24 Buena Vista Ave Contra Costa Canal Trail Pleasant Hill 680 Pleasant Hill BART Iron Horse Regional Trail Bancroft Rd Treat Blvd Concord Oak Grove Rd Contra Costa Canal Trail Ygnacio Valley Rd Geary Rd Briones to Mt. Diablo Regional Trail N Main St Core Area City of Walnut Creek Walnut Ave Ygnacio Canal Trail Walnut Creek BART }þ 24 Pedestrian Retail District Lafayette 680 Rudgear Rd Lafayette - Moraga Regional Trail Tice Valley Blvd Alamo Iron Horse Regional Trail Trotter Way Key Pedestrian Zones Parks and Trails System Commercial / Employment Centers School Areas Core Area Residential Neighborhoods Transit Corridors and Transit-Oriented Development Pedestrian Retail District Figure 2-1 Key Pedestrian Zones in Walnut Creek

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26 18 CHAPTER 3: EXISTING CONDITIONS

27 Walnut Creek is a walkable city with a diversity of neighborhoods and commercial areas that accommodates pedestrians in a variety of ways. Downtown Walnut Creek is a major regional shopping destination and offers a vibrant pedestrian space in the heart of the City and near the Walnut Creek BART Station. With paseos, pedestrian plazas, public art, street trees, and high quality streetscape materials, Downtown Walnut Creek is a comfortable, pleasant, and interesting place to walk. To the north and south, multi-family residential neighborhoods and a number of office buildings are in close proximity to the Downtown and BART Station. Open space and trails are abundant throughout Walnut Creek and are vital community assets for residents and visitors alike. The City s residential neighborhoods including local homes, shopping, schools, and parks, are also pleasant places to walk, with some roadways having sidewalks and others having a more rural character. Many City streets also serve as regional commute routes that affect the character of the pedestrian environment, land use patterns and travel behavior. This chapter presents an overview of the current conditions for walking in Walnut Creek and includes discussion of the following citywide walking trends: Land Use Demographics and Mode Split Safety Record Analysis Pedestrian Demand Analysis Pedestrian Network Connectivity Analysis Above: Walnut Creek has a diverse range of pedestrian environments that support walking with sidewalks, midblock connections, and protected walkways. Existing Issues by Pedestrian Typology Zones CHAPTER 3: EXISTING CONDITIONS 19

28 Land Use Walnut Creek has a variety of pedestrian accessible destinations that attract local residents and those from nearby communities. The City s Downtown Core Area, including the Traditional Downtown and the newer commercial uses to the south of Mt. Diablo Boulevard, includes a variety of shopping centers, which are popular local and regional destinations. To the north and south of the Traditional Downtown are major employment centers, with office and other commercial uses, particularly centered near the Walnut Creek and Pleasant Hill/Contra Costa Centre BART Stations. In eastern portions of Walnut Creek, the Shadelands Business Park and John Muir Medical Center are important employment centers. Outside of these retail and employment clusters, most of the land area of the City is dedicated to low-density singlefamily residential neighborhoods. Figure 3-1 presents a map of land use in Walnut Creek. 20 CHAPTER 3: EXISTING CONDITIONS

29 Pleasant Hill Concord Lafayette Acalanes Ridge Open Space Hwy 24 Geary Road Buena Vista Ave Olympic Blvd N Main St I-680 Mt Diablo Blvd Civic Dr BART Heather Farm Bancroft Rd Walnut Blvd Treat Blvd Ygnacio Valley Rd Oak Grove Rd Walnut Ave Boundary Oak Castle Rock Rd Shell Ridge Open Space Lime Ridge Open Space General Plan Land Use Map City of Walnut Creek 2025 Legend Single Family Very Low (SFVL) du/ac Single Family Low (SFL) du/ac Single Family Medium (SFM) du/ac Single Family High (SFH) du/ac Multifamily Low (MFL) du/ac Multifamily Medium (MFM) du/ac Multifamily Medium High (MFMH) du/ac Multifamily Very High (MFVH) du/ac Multifamily Special High (MFSH) du/ac Mixed Use - Residential Emphasis (MU-R) Density Varies Mixed Use - Pleasant Hill BART Station Area Specific Plan Mixed Use - Commercial Emphasis (MU-C) Density Varies Mixed Use - Golden Triangle (MU-GT) Density Varies Rudgear Rd Open Space - Agriculture (OS/A) 0.1 du/ac Tice Valley Blvd Open Space - Recreation (OS/R) Sugarloaf Open Space Service Commercial (SC) Auto Sales and Service (AS) General Retail (GR) Rossmoor Pkwy SOURCE: City of Walnut Creek General Plan I-680 Alamo The official copy of the General Plan Land Use Map is kept at the Community Development Department and is available to the public during all regular business hours. This is one of several General Plan maps that affect development in Walnut Creek and which should be consulted. The General Plan text is itself an integral part of the land use plan for the city and must also be consulted. The City of Walnut Creek is not responsible for use of this map beyond its General Plan purposes Map Date: August Miles 2 Public/Semi Public (PU) Hospital (HO) Pedestrian Retail (PR) Office (OF) Business Park (BP) Highways Major Roads City Limit Planning Area Boundary Sphere of Influence ABC Figure 3-1 Existing Land Uses

30 Demographics The Walnut Creek pedestrian network must be flexible to accommodate the variety of demographic groups that will be using the system. The needs of the old and young, in particular, may require special consideration. Demographic Data Table 3-1 presents the population age groups for Walnut Creek compared to those of the County and the San Francisco Bay Area as a whole. Walnut Creek has a lower proportion of school-aged children but a high proportion of residents older than 65 years old compared with Contra Costa County and the San Francisco Bay Area. This is partly due to the large senior community of Rossmoor, located in southwest Walnut Creek. Children, seniors and the disabled have unique needs as pedestrians and are disproportionately represented in pedestrian collisions. Designing the pedestrian environment with these more vulnerable populations in mind contributes to pedestrian areas that are safe and comfortable for everyone. Above: Students walk to Buena Vista Elementary School. TABLE 3-1: POPULATION AGE GROUPS Age Group San Francisco Bay Area Contra Costa County City of Walnut Creek <19 years 25% 27% 19% years 63% 60% 56% 65+ years 12% 13% 26% Total 100% 100% 100% Source: US Census Bureau, American Community Survey Children Children have special needs as pedestrians. Young children are often too small to be in the line of sight of drivers, so without proper designs, streets with land uses frequented by children may not be safe for these young pedestrians. In addition, children walk slower than adults and may not be able to gauge the amount of time needed to cross an intersection. When streets surrounding schools have inadequate pedestrian facilities, parents may be reluctant to allow their children to walk to school, and will decide to drive children to school for even short distances. Seniors Sidewalk and crossing conditions are particularly important for seniors as pedestrians. Seniors have slower walking speeds and reaction times, and may have other impairments that restrict their mobility, vision, and hearing. Sidewalks and street crossings should be sensitive to these barriers and how they affect the aging population. Frequent seating options along walking paths, including shade, are also important for seniors. 22 CHAPTER 3: EXISTING CONDITIONS

31 TABLE 3-2: EXISTING MODE SPLIT FOR Mode COMMUTE TRIPS San Francisco Bay Area Contra Costa County City of Walnut Creek Drove Alone 67% 70% 65% Carpool 11% 12% 7% Source: Dan Burden Public Transportation 10% 9% 16% Persons with Disabilities The Americans with Disabilities Act (ADA) sets guidelines for people with disabilities to access public accommodations and commercial facilities. Disconnected sidewalks, pinch points, and unpaved surfaces can prove frustrating or inaccessible to disabled pedestrians. Additionally, pedestrian crossings may not address the needs of those with poor vision without audible or vibro-tactile enhancements. Directional curb ramps, running parallel to the crosswalk, help orient users with disabilities directly into the crosswalk. Mode Split Trends Understanding what mode of travel people choose and the purpose of their trip can help the City of Walnut Creek develop effective and targeted programs to better serve residents, visitors and employees, and identify opportunities to shift trips to walking trips. Table 3-2 presents Census data for the commute mode split for the City of Walnut Creek, as compared to Contra Costa County and the San Francisco Bay Area. Walk 4% 2% 3% Bicycle 2% 1% 1% Taxicab, motorcycle, other Worked at Home 1% 1% 1% 6% 6% 7% Source: US Census Bureau, American Community Survey Walking has a higher commute mode share in Walnut Creek than it does countywide, at three percent, but a lower share than the San Francisco Bay Area, which has four percent. The walking trips described in the table do not include non-commute walking trips, which are more common. While driving alone is the predominant means of commuting, it is lower in Walnut Creek than the comparison areas. The public transportation mode share (at 16 percent) is higher in Walnut Creek than in the county and San Francisco Bay Area; whereas, the carpool mode share is lower in Walnut Creek. Commuter walking trips are an important part of Travel Demand Management for local employers. The proximity of high density housing to employment centers is a key strategy for increasing the walking commute mode share. CHAPTER 3: EXISTING CONDITIONS 23

32 Table 3-3 presents travel modes used by BART riders to access the Pleasant Hill and Walnut Creek BART stations, as well as the BART system as a whole. A higher percentage of passengers walk and take transit to Walnut Creek BART than to Pleasant Hill BART but both stations have a lower percentage than the system wide values. The Walnut Creek and Pleasant Hill BART Stations are located in a less urban environment than the San Francisco and Oakland BART stations, which have higher ridership and are more represented in the BART system-wide results. The Walnut Creek and Pleasant Hill stations are also the end of the BART line and offer significant parking options. The values in Table 3 consider all trips to the BART stations, not just commute trips. The high percentage of walking mode share to the Walnut Creek BART Station compared to the Pleasant Hill Station emphasizes the importance of creating strong first mile/last mile connections to the BART stations, which would support increases in walking and safety for those who already walk. Safety Record Analyzing pedestrian collision records is an important initial step in a pedestrian planning effort as it can help to identify patterns in locations and collision factors. Identifying patterns in the context of existing pedestrian activity helps develop safety-related policies, priority areas for improvement, and related education and enforcement programs. The analysis evaluated reported pedestrian-vehicle collisions that occurred in Walnut Creek over a ten-year period ( ). TABLE 3-3: TRAVEL MODE TO PLEASANT HILL AND WALNUT CREEK BART Mode of Access BART (System- Wide) STATIONS Pleasant Hill BART Walnut Creek BART Auto 1 49% 72% 61% Bus/ Transit 15% 5% 13% Walk 31% 19% 24% Bike 4% 3% 2% 1. Passenger either drove alone, was dropped off, or carpooled to the station. Source: BART Station Access Survey, 2008 Walnut Creek in Context The most recent findings from the California Office of Traffic Safety (OTS) data show that for Walnut Creek, pedestrian injuries and fatalities rank higher than total traffic injuries and fatalities for ranking grouped by daily Vehicle Miles Traveled. This indicates that when compared to cities with similar daily VMT, Walnut Creek pedestrians are disproportionately impacted by traffic collisions compared to total traffic injuries and fatalities. Table 3-4 presents how Walnut Creek ranks for all traffic fatalities and injuries and pedestrian fatalities and injuries as compared to all of the 102 California cities with a similarly sized population 1. A larger number (e.g. 101 or 102) indicates a lower number of collisions compared to cities of similar populations or daily vehicle miles traveled (VMT). In other words, the larger the number, the better the 1 Walnut Creek falls in to Group C designated by OTS, which includes 102 California cities with populations between 50, , CHAPTER 3: EXISTING CONDITIONS

33 ranking. The smallest number (e.g. 1) ranks a city as the highest or worst for safety. Note that the OTS rankings do not account for differences between cities such as land use and urban development context, which can be important considerations when weighing pedestrian safety and collisions. TABLE 3-4: WALNUT CREEK COLLISION RANKINGS AMONG SIMILAR Category Total Traffic Injuries Fatalities Total Pedestrian Injuries Fatalities CALIFORNIA CITIES, 2011 Walnut Creek s Ranking Compared to Similar California Cities Ranked by Daily VMT 1,2, 3 1. VMT = Vehicle Miles Traveled Ranked by Population 2, 3 82/101 37/102 72/101 46/ OTS presents 102 cities ranked by 2011 population, and 101 cities ranked by 2011 VMT. 3. Numbers closer to 101 or 102 indicate fewer injuries and fatalities. Source: California Office of Traffic Safety 2011 OTS Rankings. In general, Walnut Creek runs in the middle range for all traffic injuries and fatalities, ranking higher among cities with similar populations, and lower among cities with similar daily VMT. Collisions with pedestrians over 65 are ranked particularly high compared to other groups, indicating that seniors are disproportionately impacted in Walnut Creek compared to other similar cities. As with all general pedestrian collision data, this could be an indication of poor pedestrian conditions, higher senior pedestrian volumes, or both. Appendix D presents a detailed collision analysis memorandum. Corridor and Hot Spot Locations Figure 3-4 presents the mapped results of the collision analysis for Walnut Creek. The corridors with the highest rates of collisions are Main Street and Broadway, both within the Downtown pedestrian district. These are also corridors with high levels of pedestrian activity. Table 3-5 presents the roadways with 10 or more collisions recorded along them. Approximately 70 percent of all pedestrian-related collisions between 2004 and 2013 occurred at intersections. Of those, 73 percent were caused by conflicts with pedestrian right of way. This typically occurs when drivers turn left or right into a crosswalk where a pedestrian is also walking. The Table 3-6 presents the intersections with the highest number of reported collisions. This pedestrian collision analysis presents one aspect of existing pedestrian conditions in Walnut Creek. Considering existing data related to pedestrian safety assists in focusing next steps, including walking surveys and pedestrian counts, and locations for improvements. While the corridors and intersections listed in Tables 3-5 and 3-6 do not present a comprehensive list of important locations for pedestrian infrastructure and safety improvements, they do suggest hot spots and a good starting point to focus investments and guide policy development. CHAPTER 3: EXISTING CONDITIONS 25