Pedestrian Planning

PEDESTRIAN PLANNING
BEST PRACTICE CASE STUDIES FOR MILWAUKEE’S
PEDESTRIAN PROJECTS, PROGRAMS, AND POLICIES

UNIVERSITY OF
WISCONSIN-MILWAUKEE

APPLIED PLANNING WORKSHOP
SPRING 2011

HEATH ANDERSON : RACHANA KOTHARI :
PAUL MERKEY : XYLIA RUEDA : MARK SAUER

CONTENTS
INTRODUCTION
7 PROBLEM, PROJECT-PROGRAM-POLICY FRAMEWORK,
PROCESS, GOALS AND OBJECTIVES

PEDESTRIANS IN MILWAUKEE
13 US PEDESTRIAN PLANNING AND MILWAUKEE, WALK
SCORE, SEWRPC, MILWAUKEE’S EXISTING BICYCLE
ACCOMMODATIONS

19 BEST PRACTICE CASE STUDIES
PROJECT, PROGRAM, POLICY

43 MILWAUKEE SITE SELECTION
GEOGRAPHIC INFORMATION SYSTEMS ANALYSIS

TARGET AREA A
47 91st ST. & SILVER SPRING DR., SITE SELECTION, WALK
SCORE, STAKEHOLDERS, PUBLIC INTERVIEWS- FIELD
SURVEY, RECOMMENDATIONS

TARGET AREA B:
57 6th ST. & LINCOLN AVE., SITE SELECTION, WALK
SCORE, PUBLIC INTERVIEWS- FIELD SURVEY, PUBLIC
PARTICIPATION OPEN HOUSE, RECOMMENDATIONS

CITY WIDE RECOMMENDATIONS
73 APPLICATION OF PROJECT, PROGRAM, POLICY
IN MILWAUKEE

3 INTRODUCTION

EXECUTIVE SUMMARY
The primary objective of this study is to identify best management prac-
tices in pedestrian planning for the City of Milwaukee. The Planning
Group has compiled different pedestrian related best practice methods
and identified how each method can be adapted to fit Milwaukee’s pe-
destrian needs. Best practices have been categorized in three groups—
project based, programs, and policies—which address various pedes-
trian issues. This report also provides a set of recommended policies
and programs to encourage, educate, and promote increased use of a
more accessible and walkable environment.

Many large cities- Seattle, Portland, San Francisco, Kansas City, Denver
have successfully drafted and adopted pedestrian plans. Many of these GROUP MEMBERS
plans are also inclusive of bicycle plans and accommodations. Milwau-
kee currently has a Bicycle Plan but not a plan that focuses on the XYLIA RUEDA
improvement of pedestrian interests, safety, and infrastructure. One Project Manager
result of not having a pedestrian plan is a large number pedestrian crash
reports generated by the Milwaukee Police Department. In a three year HEATH ANDERSON:
period from January 2007 to January 2011, 828 pedestrian crashes GIS Spatial Analysis
were reported. Because of the need to increase pedestrian safety, this
report begins the research and development of a pedestrian plan for the
MARK SAUER:
City of Milwaukee.
Public Participation
To begin this study, the Planning Group first began by identifying various Coordinator
case studies in improvements to pedestrian related projects, programs,
and policies. Then the group utilized ESRI’s ArcGIS program point den- RACHANA KOTHARI:
sity tool in conjunction with the crash data to better define the areas Urban Design Specialist
of highest crash frequency. Further analysis was conducted on various
sites that met the group’s criteria to gain a greater understanding of PAUL MERKEY:
the physical make-up of the sites. The two sites that best fit our criteria Program Researcher
were the intersections of N 91st St. & W Silver Spring Ave. and S 6th
St. & W Lincoln Ave.

In order to better serve the public, questionnaires and a public open
house were conducted to gain an understanding of the publics’ desires,
needs, likes, and dislikes. One of those needs was to address speed
and driver courtesy throughout Milwaukee. Photomontages and spe-
cific site recommendations were constructed for each site that included
project recommendations intended to aid in the reduction of pedestrian
crashes. The group then identified best practice methods to be adopted
as the framework for problematic intersections throughout the City.

The end product is a compilation of best practice project, program, and
policy recommendations at two site specific locations and city wide which
outlines tasks needed to reduce pedestrian crashes throughout the City.
The next critical steps for the City is to devise a ranking system to stra-
tegically prioritize and ensure the most critical projects are addressed
first while phasing in lower-priority projects based on cost and feasibil-
ity. These recommendations were constructed through public input and
are in the best interest of the residents of Milwaukee.

5 INTRODUCTION

INTRODUCTION
During the fifteen week semester, group members worked on a
planning related problem dealing with improvements to the proj-
ects, programs, and policies impacting the pedestrian realm in
Milwaukee. Taking a client-centered approach to defining and
solving the problem, the group acted as a consulting team for
Dave Schlabowske, Bicycle and Pedestrian Coordinator for the
City of Milwaukee, Department of Public Works.

The overall project goal for is to present the client with a docu-
ment on best practice case studies in pedestrian projects, pro-
grams, and policies from around the nation. Not only will this
document highlight best practices, but it will showcase how those
best practices can be implemented at various sites throughout
the City of Milwaukee.

PROBLEM
Ninety-five percent of streets in Milwaukee have sidewalks. This
existing infrastructure provides ample opportunity for pedestrian
circulation and allows for safe separation of motorized and non
motorized transportation in the public realm. However, sidewalks
alone are not enough. In order to cater to the increased den-
sity of pedestrian traffic desired by stakeholders throughout the
city, Milwaukee must improve policies and programs to guide the
physical design of streets for the pedestrian.

Currently, the State of Wisconsin uses “Guide to Complete Streets”
when redeveloping state roads and highways. This plan is enact-
ed when any State or federal money is used to finance a project,
regardless of the location of the infrastructure in the State. The
“complete” street guide however, does not apply to city streets
not owned by the state. Though the City of Milwaukee has the
ability to create the infrastructure and density it desires through
its own means, there is currently no best practices program or
complete streets policy in place to guide this development at the
local level.

This study is intended to create a living, breathing document
which applies best practice principles in pedestrian-oriented de-
sign to specific areas throughout the City of Milwaukee. In addi-
tion, it will act as a gateway and template for further develop-
ment of best practices in City projects. The outcome will be a
combination of project, policy, and program recommendations for
the City of Milwaukee.

7 INTRODUCTION

PROJECT, PROGRAM, POLICY FRAMEWORK
Pedestrian planning is inclusive of three elements- project, pro-
gram, and policy. Implemented through private or public entities,
the three p’s of pedestrian planning are used to ensure a safe and
rewarding walking experience.

Project: A project is defined as the implementation of a physical
change to the pedestrian infrastructure or experience. Projects
would include things like installing speed humps, or new cross-
walk line painting. Projects should be done at the municipal level.

Program: A program is a short-term activity with a goal of edu-
cating the public or encouraging walking as a viable transporta-
tion option. Programs can be implemented at the municipal level
or privately.

Policy: A policy is a long-term resolution, ordinance, or commit-
ment by a department or agency to educate the public or encour-
age walking as a viable transportation option. Policies can be
implemented by private entities or through a municipality.

PROCESS
The research began with a problem definition and understanding
of Milwaukee’s current pedestrian infrastructure, programs, and
policies. Goals, objectives, and criteria were then defined in order
to frame the research and problem-solution. Finally, a scope of
work was created and roles were selected by each group member.

Two Milwaukee sites were selected using Geographic Information
Systems analysis. In addition, best practice case study research
was conducted to effectively and efficiently enhance pedestrian
infrastructure, programs, and policies in cities around the nation.
Through conceptual design renderings and recommendations,
best practice research will be implemented on two sites within
the City of Milwaukee focusing on site specific projects, programs,
and policies.

As part of the implementation and recommendation process, a
public participation charette and stakeholder interviews were
conducted within the two selected sites. Stakeholder interviews
proved to be useful in understanding how power and responsibil-
ity is shared amongst the users of the intersection (drivers, pe-
Above: Participants of the public destrians, local business owners). The public charette allowed for
charette place stickers on safe preference surveys to be conducted and residents to have a direct
and unsafe areas of one of the impact on the future of their community.
target intersections.

PEDESTRIAN PLANNING: MILWAUKEE
BEST PRACTICE’S FOR PEDESTRIAN POLICIES, PROGRAMS, AND PROJECTS
8

The result of this process is both conceptual design ideas and
recommendations on projects, programs, and policies the City of
Milwaukee can implement to improve the pedestrian realm.

GOALS, OBJECTIVES, AND CRITERIA
The goals, objectives, and criteria, outlined below, were defined
by the Planning Group. They are intended to be the result of the
research and identify recommendations presented in this docu-
ment and future implementation by the City on specific sites, or
in City wide policy.

IMPROVE SAFETY: By eliminating the perceived and real safety
issues in the pedestrian realm, people are more likely to choose
to walk.
Objective:
1. Reduce pedestrian crashes
Criteria:
- Improve block and intersection design for pedestrian
usage based on best practices
- Improve Pedestrian Level of Service (see WISDOT)
2. Ensure pedestrian right-of-way
Criteria:
- Restrict street furnishings to the edges of the sidewalk
- Increase sidewalk width
3. Education and Outreach
Criteria:
- Safe pedestrian habits will be presented in at least
three different media formats
- Safe pedestrian habits will be directed at all ages
- Programs will educate the public on pedestrian safety
regulations
- Safe driving habits

ENCOURAGE WALKABILITY: Milwaukee should encourage
walking to promote healthy and active lifestyles which result in
associated environmental and economic benefits.
Objective:
1. Increase the frequency of walking
Criteria:
- Create programs that encourage walking over motor-
ized transportation
- Enhance street design as to be part of the public realm
to make pedestrians feel welcome and safe
2. Education and Outreach:
Criteria:
- Inform and educate elected officials and public agency
staff about the pedestrian realm

9 INTRODUCTION

- Organize programs and events to encourage public to
walk
3. Improve access to sidewalks and crossings:
Criteria:
- Reduce intersection crossing distances for pedestrians
- Improve accessibility to crossings and sidewalks for
those with disabilities
4. Improve connectivity:
Criteria:
- Enhance accessibility to other modes of travel such as
mass transit
- Promote pedestrian design to be compatible with sur-
rounding uses
- Implement American Disability Act (ADA) design stan-
dards in all projects to improve accessibility for all users

THINK LOCAL: The City of Milwaukee has the resources and
ability to manage its pedestrian infrastructure with local funding
sources and incentives.
Objectives:
1. Complete and maintain pedestrian system
Criteria:
- Create funding strategies for pedestrian infrastructure
improvements
- Create funding strategies for pedestrian infrastructure
maintenance
2. Public/Private investment (partnerships)
Criteria:
- Identify private funding sources for pedestrian infra-
structure
- Identify avenues for ventures
- Identify and pursue available grants through intergov-
ernmental co-operation

10

PEDESTRIANS IN MILWAUKEE
The following chapter is background information on pedestrian
planning as it relates to Milwaukee.

U.S. PEDESTRIAN PLANNING AND MILWAUKEE
Cities like Seattle, Portland, and San Francisco all consistently
rank among the most desirable cities to live and visit. Their ur-
banism- multi-modal approach to transportation, economic vital-
ity, and livability- is notorious Nationwide and often emulated in
the planning profession. Among the various reasons for their de-
sirability is the fact that these cities are extremely walkable. Since
the early 1990’s, pedestrian planning has emerged as a form of
transportation that progressive cities like Seattle, Portland, and
San Francisco have incorporated into planning policies and pro-
grams. In 1998 the City of Portland adopted it’s Pedestrian Mas-
ter Plan. Even earlier, in 1996, Seattle drafted and adopted its
first Pedestrian Master Plan which has now blossomed into an on-
line interactive map highlighting walking routes, amenities, and
multi-modal connections. One of the main reasons these urban
areas are so successful is because they have taken a wholistic
approach to transportation planning and created pedestrian plans
for the 21st Century.

The City of Milwaukee currently ranks as the 28th largest city by
Population. Similar cities like Denver, Portland, and Louisville,
Kentucky have all adopted or are in the process of adopting pe-
destrian plans. Cities like Baltimore and Nashville have county
or regional pedestrian plans which are used at the local level by
each respective city to coordinate pedestrian planning. On the
other hand, Milwaukee has just drafted its Bicycle Plan and does
not have a strategic, City wide plan for its pedestrians. Walking
is still very much a necessity in Milwaukee because of the safety
and desirability factors which stem from its foundation. While the
City of Milwaukee has in place the sidewalks it needs to encour-
age walking, the City lacks a wholistic approach to pedestrian and
transportation plans. Using studies like Seattle and Denver allows
Milwaukee to see what an excellent pedestrian plan looks like.
More importantly, it will allow Milwaukee to emulate an excellent
pedestrian planning process.
Data Source. US Census, 2010

Above: a comparison of similar
sized cities in terms of areas and
population.
Source: City of Milwaukee Downtown Plan

13 PEDESTRIANS IN MILWAUKEE

WALK SCORE
Walk Score is an independent interactive mapping site launched
in 2007. Inspired by the work of the Sightline Institute, its mis-
sion is promote walkable neighborhoods by making it easy for the
average Joe to evaluate walkability- or access to amenities and
transportation- when deciding where to live.

The Planning Group decided to utilize this free service to evalu-
ate the two target areas because the Planning Group agrees with
Walk Score’s identification of certain variables that make a place
or neighborhood walkable. Walkable neighborhoods offer ben-
efits to the environment, health, finances, and communities that
sprawling, auto-dependent neighborhoods do not. Walking pro-
duces zero emissions and provides an alternative to costly gas
prices or bus fares. Additionally, studies show that for every ten
minutes a person spends in a daily car commute, time spent in
community activities falls by 10% (Sightline Institute). Final-
ly, according to a Seattle Times report entitled 2 studies: Urban
sprawl adds pounds, pollution, “the average resident of a walk-
able neighborhood weighs seven pounds less than someone who
lives in a sprawling neighborhood”

In each target area section, there is an evaluation of the select-
ed intersection and surrounding neighborhood using Walk Score.
Walk scores are numbered between 0 and 100 with 100 being a
“walker’s paradise” where daily errands do not require a car. The
City of Milwaukee average Walk Score is 62, but it ranks 13th
amongst the largest 40 U.S. cities. San Francisco is number 1.

Above: Milwaukee’s most walk-
able neighborhoods are ranked
by Walk Score

Bottom Left: A one mile radius in
a compact neighborhood versus a
sprawling neighborhood

14

SOUTHEASTERN WISCONSIN REGIONAL
PLANNING COMMISSION (SEWRPC)
The Southeastern Wisconsin Regional Planning Commission’s
(SEWRPC) planning report “A Regional Transportation System
Plan for Southeastern Wisconsin: 2035,” states that their pedes-
trian facilities plan element is a policy, rather than a system, plan.
It proposes that the various units and agencies of government
responsible for the construction and maintenance of pedestrian
facilities in Southeastern Wisconsin adopt and follow recommend-
ed standards and guidelines with regard to the development of
those facilities. The guidelines, together with the recommended
standards for pedestrian facilities, are designed to facilitate safe
and efficient pedestrian travel within the Region.

SEWRPC’s planning report further notes the importance of pedes-
trian safety:
“The standards and guidelines for pedestrian facilities in-
clude recommendations that sidewalks be provided along
streets and highways in areas of existing or planned urban
development based upon identified criteria; that sidewalks
be designed and constructed using widths and clearances
appropriate for the levels of pedestrian and vehicular traffic
in any given area; that landscaped terraces, curb lawns, or
other buffer areas be provided between sidewalks and the
roadways enhancing the pedestrian environment; and that
efforts be made to maximize pedestrian safety at street
crossings, including the timing of the “walk” phase of traf-
fic signals to provide for safe pedestrian crossings, and
the provision of pedestrian “islands” and medians in wide,
heavily traveled, or otherwise hazardous roadways. The
plan also emphasizes that all pedestrian facilities must be
designed and constructed in accordance with the require-
ments of the Federal Americans with Disabilities Act and its
implementing regulations.”
They also propose that local units of government prepare com-
munity bicycle and pedestrian plans to supplement their regional
plan. The local plans should provide for facilities to accommodate
bicycle and pedestrian travel within neighborhoods, providing for
convenient travel between residential areas and shopping cen-
ters, schools, parks, and transit stops within or adjacent to the
neighborhood. Lastly, SEWRPC recommends that local units of
government consider the preparation and implementation of land
use plans that encourage more compact and dense development
patterns, in order to facilitate pedestrian and bicycle travel.

15 PEDESTRIANS IN MILWAUKEE

MILWAUKEE’S EXISTING BICYCLE
ACCOMMODATIONS
Transportation comes in many forms. These forms sometimes
work together and sometimes compete for users. Whether an
individual decides to bike, walk, drive or otherwise, it is important
to think about pedestrian planning as part of a larger transporta-
tion network which supports the need and desire to have multiple
modes of transportation. One area where Milwaukee has excelled
thus far is in bicycle planning and accommodation. Incorporating
the existing bicycle infrastructure into pedestrian planning will
offer multiple benefits that a singular approach to transportation
planning would otherwise miss.

The following is an excerpt from SEWRPC Memorandum Report
No. 197 Review, Update, and Reaffirmation of the Year 2035 Re-
gional Transportation System Plan:

This map (page 17) identifies those arterial streets and
highways which provided bicycle accommodations through
paved shoulders, bicycle lanes, or separate paths in 2009.
The mileage of arterial streets and highways that provided
bicycle accommodations through paved shoulders, bicycle
lanes, or separate paths increased from about 633 miles in
2004 to about 650 miles in 2009, or about a 3% increase.
Data is not available to identify those urban arterials with
outside lanes of 14 feet in width which also accommodate
bicycles.

A multi-modal transportation system with high quality pub-
lic transit, bicycle and pedestrian, and arterial street and
highway elements which adds to the quality of life of Region
residents and supports and promotes expansion of the Re-
gion’s economy, by providing for convenient, efficient, and
safe travel by each mode, while protecting the quality of
the Region’s natural environment, minimizing disruption of
both the natural and man-made environment, and serving
to support implementation of the regional land use plan,
while minimizing the capital and annual operating costs of
the transportation system.

16

BEST PRACTICE CASE STUDIES
The best practice section of this report outlines several project, Case Studies are from the Pe-
program, and policy best practices from around the nation that destrian and Bicycle Information
deal with how to improve the pedestrian experience. They range Center Case Study Compendium,
from simple project practices like lighting and stripping cross- July 2010
walks to programs designed to reinstitute the practice of walk-
ing to neighborhood schools. Ultimately, these physical and insti-
tutional changes are recommendations based on their success.
They can only be fully successful in Milwaukee through a com-
bined social change in the behavior of pedestrian, bicyclists, and
motorists alike.

PROJECT BEST PRACTICES
The project section includes a collection of case studies cover- PROJECTS
ing a broad array of topics from safety, walkability, accessibility, 1. UNCONTROLLED
infrastructure improvements, planning, education and enforce- CROSSWALKS
ment. These case studies will serve as a baseline for project im- 2. SPEEDING AND LACK OF
plementation by providing ideas for potential methods Milwaukee VISIBILITY
can undertake to improve pedestrian infrastructure and support 3. IRREGULAR ANGLES
a walkable environment. Each case study provides a context in 4. LACK OF CURBS
which the project takes place, a description of the pedestrian is- 5. ECONOMIC
sues faced, as well as how the community sought to address DISINVESTMENT
their concerns through various measures. Each case study then 6. ROUNDABOUT
concludes with a solution describing the successes and lessons 7. MANAGING
learned from the planning process or implementation. STORMWATER
8. CREATING SIDEWALKS
9. UNLIMITED AND
CASE STUDY 1: UNCONTROLLED CROSSWALKS UNDEFINED ACCESS
Location 10. TOTAL FACILITIES
City of Santa Rosa, California OVERHAUL

Problem
The City of Santa Rosa reported an unusually high incidence of
pedestrian/vehicle collisions due to uncontrolled crosswalks.

Background
Speeding on residential streets is cited as one of the most fre-
quently expressed concerns by local citizens. To provide a solu-
tion to the issue, three locations were selected for traffic calming
and facilities improvements. The solution was tested, analyzed
and monitored with funding from the California Office of Traffic
Safety (OTS).

Solution
Santa Rosa initiated a new proactive pedestrian warning system
where a flashing device would be installed on the pavement sur-

19 BEST PRACTICE CASE STUDIES PROJECTS

face, along the crosswalk lines facing traffic. The In-Pavement
Flashing Lights Crosswalk Warning System’s purpose was to warn
the vehicular traffic of the presence of pedestrians in the cross-
walk at uncontrolled intersections. This was tested in the city with
the permission of The California Traffic Control Devices Commit-
tee. The experimental system consists of a series of flashing
Below: In-Pavement Crosswalk light units which are embedded in the pavement adjacent to a
lighting during the day and at marked crosswalk. The lights reflect toward the oncoming traffic
night. to warn drivers of a pedestrian’s presence.

Result and Application for Milwaukee
The concept of flashing amber lights embedded in the pavement
at uncontrolled crosswalks clearly has a positive effect in enhanc-
ing a driver’s awareness of crosswalks and modifying driver hab-
its to be more favorable for pedestrians. It is even more effec-
tive during adverse weather conditions such as darkness, fog and
rain. With continuous monitoring it has been found that after the
implementation of the device the number of pedestrian/vehicle
fatalities had been reduced in the City of Santa Rosa. Moreover,
other cities like Lafayette and West Hollywood have also installed
the crosswalk warning systems based on the success in City of
Santa Rosa.

CASE STUDY 2: SPEEDING AND LACK OF VISIBILITY
Location
Bellevue, Washington

Problem
Pedestrian crash data suggested increased fatalities on the resi-
dential streets of the City of Bellevue. With the expressed con-
cerns of the local citizens, the City needed to take some action.
Two main issues which concerned the citizens were speeding on
residential streets and reduced visibility due to close parking near
school crosswalks.

20

Background
The numerous concerns of local citizens- including increased fa-
talities on the residential streets near schools- put this project
into motion. Five different school locations were selected for fa-
cilities improvements on the basis of high numbers of students
living within walking distance. Initially, this program was created
for traffic calming but infrastructure improvements were later im-
plemented.

Solution
Design and infrastructure improvements included installing raised Above: A typical curb exten-
crosswalks which doubled to reduce vehicle speeds while at the sion. Curb extensions are used
same time improving pedestrian visibility by preventing vehicles to reduce the distance pedestrian
from parking too close to the crosswalk. Curb extensions were have to cross. As a secondary
also added, where feasible, to decrease the distance necessary to benefit, they can often reduce
cross the road and improve line of sight. Bollards were installed the speed of traffic and provide
room for additional sidewalk ele-
in the curb extensions to prevent children from huddling near the
ments like lighting, rubbish bins,
curb. In several locations additional measures were also taken, and signage.
such as a traffic circle for additional traffic calming, improved
street lighting, and additional sidewalks to bridge gaps. The im-
provements also included an educational component.
...through facilities
At the selected locations within Bellevue for which data was avail- improvements the
able, it has been noticed that through facilities improvements the average vehicle
average vehicle speed is reduced by 3 mile per hour. The curb speed is reduced by
extensions have effectively prevented parking next to the cross-
walk, physically keeping parked cars at least 30 feet away. Com- 3 mile per hour...
ments from parents and residents are extremely positive after
the improvements and the city plans to implement these in future
projects.

CASE STUDY 3: IRREGULAR ANGLES
Location
Mulry Square, New York City, New York

Problem
The Mulry Square intersection in Greenwich Village was perceived
to be an odd and dangerous intersection due to a continuously
increasing number of fatalities. Speeding, obstructed views of on-
coming vehicular or pedestrian traffic, irregular angles resulting
in high speed irregular turns, improper and unidentifiable cross-
walks were some of the reported issues that the community re-
quested the City take actions on.

Background
Mulry Square, a wedge-shaped site, is currently owned by NYC
Metropolitan Transit Authority. The site is used as a parking lot


and is located at the southwest corner of Greenwich Avenue and
south of Seventh Avenue. Because of the ongoing reports of traf-
fic related safety issues by concerned residents, the New York
City Department of Transportation has worked with the local com-
munity to assess the issues and provide solutions.

Solution
The community-based planning process resulted in recommen-
dations for traffic calming techniques and the addition of ameni-
ties in the surrounding area. These included sidewalk extensions,
reconfigured crosswalks, and additional greening of the area.
These improvements transformed this intersection, which was
previously known for pedestrian accidents and high-speed turns.
As a short term solution, sidewalk extensions were painted on the
street and outlined with temporary bollards to test the impact of
the recommendations on traffic flow. Once it was clear that the
solutions worked, the project was built out in final form with slate
pavers, granite curbs, new crosswalks, landscaping, bollards, and
changes in traffic light phasing.
Above: Mulry Square before and
after pedestrian improvements Result and Application for Milwaukee
were made. With the infrastructure improvements at Mulry square the num-
ber of fatalities has been reduced by nearly 60%. The success of
the project is evident in the positive community feedback.
CASE STUDY 4: LACK OF CURBS
Location
Seattle, Washington

Problem
The sidewalks on Seattle’s southeastern
streets were perceived to be unsafe and
less pedestrian friendly without curbs.
Due to a lack of curbs, cars were parked
on the sidewalks and planting strips
which left no barriers to traffic and made
streetscaping maintenance impracti-
cal. Furthermore, because cars were not
parked on the street, the width of the
street encouraged an unsafe driving at-
mosphere discouraging pedestrians.

Above: Mulry Square now offers Background
a safer pedestrian experience The Seattle Department of Transportation identified the need to
because of traffic calming efforts improve facilities in its southeastern quarter, a largely low income
like sidewalk extensions and in- community of Seattle between the years 2001-2004. With the
creased green space.
plan to implement safer and more walkable neighborhoods in this
quarter, this project was initiated.

22

Solution
The Seattle Department of Transportation was committed to tak-
ing numerous actions for this project including adding curbs, pro-
moting on-street parallel parking, installing landscaping, traffic
calming, and sidewalk repairs to support safer and more walk-
able neighborhoods. However, the project faced several obstacles
due to concerns raised by local residents. With concerns ranging
from maintenance issues of planting strips to gentrification, and
limited funds, the initial project was termed as a demonstration Below: Extruded curb technology
project chosen to serve as a model for future improvements. is used to install curbs. By using
this technology, the Seattle DOT
One street segment with disintegrating sidewalks and high rates avoided costly street repaving
of thru-traffic was chosen for the demonstration. After the im- and still accomplished its goal to
provement was identified as having a positive impact, surveys formalize the street because ex-
truded curbs can be freestanding.
were carried out to further the work of revital-
izing the neighborhood. Results showed that
sixty-six of the ninety-five affected house-
holds approve of the project. To incorporate
the needs of the residents, a staff designer
was assigned throughout the design and con-
struction phase. Extruded curb technology was
used rather than formed curbs, which would
have required repaving the street to current
standards. City landscape crews also worked
with residents to plant trees and lay sod.
Funding was obtained through two sources:
a Community Development Block Grant- due
to the status of the neighborhood as low in-
come- and a small neighborhood grant of City
funds. Since the funding source was limited in
the long-run, it did not allow more than sev-
eral thousand linear feet of improvements to
be accomplished city-wide in one given year. “The three speed humps
Thus, the project was carried out in phases
over a number of years. installed and new parallel
parking helped to slow traffic
Result and Application for Milwaukee by an average of 12 miles per
The results were widely appreciated by the
southeastern quarter neighborhoods. Pedest- hour”
rians have an unimpeded path beside the road that is now pro-
tected by attractive plantings. The three speed humps installed
and new parallel parking has helped to slow traffic by an aver-
age of 12 miles per hour. Residents themselves appreciate the
improvements and view it as public investment to bring adequate
standards to their neighborhood.


Below: Reinvestment in the CASE STUDY 5: ECONOMIC DISINVESTMENT
pedestrian experience included Location
new brick pavers, bluestone Washington, D.C.
pedestrian crossings, a planting
strip, new lighting, bike racks,
Problem
and trash receptacles. These
improvements proved essential
Barracks Row (8th Street SE) a ¾-mile, 6-block stretch between
to new retail business growth on Pennsylvania Avenue and M Street SE, is one of the District’s old-
this D.C. street est commercial corridors. The century old buildings in the oldest
commercial strip give the street charm and character, but over
the years it had experienced economic disinvestment. Vacant
storefronts and loitering added to the perception that 8th Street
was an unsafe place to be and shop after dark. Merchants com-
plained that there was inadequate public parking. Time had taken
its toll on the public realm which was left with cracked concrete
sidewalks, inconsistent roadway-focused street lighting, inade-
quate parking and weathered and unhealthy street trees.

Background
The Capitol Hill neighborhood began organizing for the revitaliza-
tion of 8th Street years ago with the formation of a non-profit
organization. It began by using materials and following the model
provided by the National Trust for Historic Preservation’s Main
Street program. Continuous efforts to improve the public realm
along the street fell short so the organization expressed concern
to DDOT and a study of local streets was launched. DDOT con-
tracted with a private transportation and landscaping firm to con-
duct the study and prepare a concept plan.

Solution
The primary goal of the Barracks Row streetscape project was
to create a safe and visually appealing pedestrian environment
and address transportation concerns in order to foster business
and retail growth in the area. The public realm on 8th Street
and Barracks Row was completely reconstructed. New brick-pav-
ers were installed within sidewalks, and key pedestrian cross-
ings were visually enhanced with bluestone paving. A five foot
planting strip was created along the curb to absorb surface runoff
from sidewalks and to provide a continuous root zone for newly
planted street trees. The project also provided for new globe
lights, bicycle racks, and trash receptacles. Additionally, 92 new
American Elm trees were donated and planted by a local “green”
organization. Loriope was planted in tree boxes as edging and a
public park was replanted and enhanced. In response to concerns
regarding the neighborhood’s lack of adequate parking, angled
parking was created along the street to replace the existing paral-
lel on-street parking.

The new configuration has increased the overall number of park-

24

ing spaces- which are short time meters to ensure a steady sup-
ply of parking in front of retail uses. Additionally, a one block area
was converted from one-way traffic to two-way, in order to pro-
mote greater access to storefronts and increase traffic mobility.
These changes were made to help revitalize the commercial area,
one of the oldest in the District of Columbia.

The Barrack’s Row revitalization effort has been highly successful.
Since 1999, 43 new businesses have opened in the area (includ-
ing business expansion through 12 new outdoor cafes), 51 fa-
cades have been restored, 198 net new jobs have been created,
and 3 new traditional buildings have been constructed. Pedestri-
ans now have a safer and more welcoming environment in which
to walk around.

CASE STUDY 6: ROUNDABOUT
Location
Abita Springs, LA

Problem
Strange configuration of the main
intersection of Abita Springs round-
about area resulted in vehicles speed-
ing and higher traffic during peak
hours. Even with the Tammany Trace
pedestrian and bicycle facility adja-
cent to the intersection, the environ-
ment of the Abita Springs historic dis-
trict remained unsafe for pedestrians
and other non-motorized traffic.
Background Above: New sidewalk pavers,
Abita Springs Historic District’s main intersection routes traffic bluestone pavers, trash recep-
counterclockwise where Louisiana 59 and 36 meet with exits onto tacles, and other sidewalk im-
Level Street as well as the two highways. The complex four-way provements transformed not only
the pedestrian realm, but spurred
intersection, which borders the town center and is close to Abita
economic development in Wash-
Springs Middle School, had been regulated by a traffic light. The ington D.C.
current lighting system has created backups which extend onto
the freeways.

Solution
With the consensus of the Mayor, Abita Springs Town Council
and business owners in the vicinity, the transportation depart-
ment committed to take actions to accommodate the needs of
all stakeholders during the design and construction phases. The
highway department measured traffic volume at the inter-section
at about 14,000 vehicles a day pre-Katrina and 17,000 after the


storm. DDOT overcame the challenges by selecting the smallest
diameter roundabout possible to accommodate vehicles (about
20,000 vehicles a day). Also, they were able to purchase and raze
a non-contributing building in the historic district to provide extra
space for the roundabout. A section of the Tammany Trace was
also shifted slightly to make it easier for pedestrians and bikers
to cross the intersection. Landscaping and more directional signs,
as well as a final layer of asphalt, were installed.

Statistical data is not yet available for the project but studies
indicated that roundabouts are safer for drivers and pedestrians
than both traffic circles and traditional intersections. Because low
speeds are required for traffic entering roundabouts they are not
designed for high-speed motor ways. However, since speeding
and congestion is high in the Abita Springs district, designing and
implementing a roundabout is considered significant so the speed
limit at the roundabout is 20 mile per hour.
Above: A new roundabout- de-
signed to fit the site specifically,
CASE STUDY 7: MANAGING STORMWATER
was used as a traffic calming
device within a historic district to Location
allow for easier pedestrian cross- Portland, Oregon
ing.
Problem
The SW 12th Avenue now known as Green Street- located at
Montgomery adjacent to Portland State University- needed to
retrofit existing street space for pedestrians, on-street parking,
street trees, landscaping, street lighting, and signage, while at
the same time capturing and filtering stormwater run-off from
12th Avenue. All this within an eight-foot wide space.

Background
The retrofit project is the City of Portland’s first green street proj-
ect and is based off of City’s commitment to promote natural sys-
tems to manage urban stormwater runoff.

Solution
The streetscape project not only manages street run-off but also
maintains strong pedestrian circulation and on-street parking.
The project utilizes a series of landscaped infiltration planters to
handle approximately 8,000 square feet of storm water runoff.
The design provides water quality treatment and maximizes in-
filtration of the runoff. Each facility can pond about 7 inches of
stormwater runoff and retain it for infiltration.

A 30-inch wide parking egress zone was dedicated for people
to access their vehicles without infringing upon the stormwater
planters. Perpendicular pathways were created between each

26

stormwater planter so that a pedestrian would not have to walk Above: These two diagrams
very far to access their cars or the sidewalk. A four-inch curb ex- depict how the new stormwater
posure at each planter indicates to the pedestrian that there is a runoff planters work during
drop in grade. Each curb cut which allows the street runoff to en- heavy rainfall
ter the stormwater planters has an ADA accessible grate to allow
Below: Birdseye view of new
for unencumbered pedestrian flow along the parking egress zone. stormwater planters
Result and Application for
Milwaukee
This was a successful “green street”
project and it has won a National
Award of Honor from the American
Society of Landscape Architects. The
project design does not pose safety
issues for pedestrians or for people
getting in and out of vehicles. Fur-
ther, it has demonstrated how both
new and existing streets in downtown
or highly urbanized areas can be de-
signed to provide direct environmen-
tal benefits and be aesthetically inte-
grated into the urban streetscape.

CASE STUDY 8: CREATING SIDEWALKS
Location
Snohomish County, Washington

Problem
The Lake Serene Community was forced to walk in the travel
lanes of Serene Way, a two-lane local access road. Walkers some-
times had to jump into the ditches to avoid oncoming cars at
certain blind turns.

Background
The road had minimal shoulders and drainage from the road col-
lected into open ditches along both sides of the road. The existing
right-of-way for the road was 60 feet and with a high number of
pedestrian vehicle collisions, the Lake Serene Community Asso-
ciation initiated the project by requesting a sidewalk be built.


Solution
The project has several main objectives which include provision
of a safe walkway, coordination with the Lake Serene Commu-
nity association, minimizing impacts to adjacent properties, and
minimizing modifications to the existing drainage system while
avoiding the use of a detention pond/pipe design. To further the
perception of safety, the 4,500 linear foot walkway was designed
in such a way that the walkway is located behind the drainage
ditches. This provides a buffer between cars, bicyclists, and pe-
destrians. Additionally, the sidewalk connects with adjacent pe-
destrian facilities and provides a safer route to school for students
of a local elementary school. In order to minimize the impact
on adjacent properties, an alignment within the existing right-of-
way was chosen that would meander among existing project site
features such as fences, trees and utility poles. Due to a lack of
funding, the County used porous concrete as infiltrating material
which doubled as a stormwater drain.

There is anecdotal evidence of increased foot traffic since the
Above: Before and After views
installation of the walkway, particularly during night hours. Ad-
of the new retention area and ditionally, there was a considerable cost savings because the use
sidewallk of porous concrete material enabled the walkway to be built by
eliminating the need for a detention system.

CASE STUDY 9: UNLIMITED AND UNDEFINED ACCESS
Location
City of Des Moines, Washington

Problem
The existing SR-99 corridor is an undivided five-lane facility with a
two-way left-turn lane (TWLTL) and paved shoulders. Significant
segments of the roadside have unlimited and undefined access.
The corridor has heavy traffic and creates an unsafe environment
for pedestrians.

Background
The project was initiated to improve traffic congestion, opera-
tions, and safety, provide facilities for transit and pedestrians,
and encourage economic redevelopment along the SR-99 corridor
through the City of Des Moines.

Solution
SR-99 will undertake a series of infrastructure improvements in-
cluding the placement and type of intersection signals, pedestrian
features, access control, and aesthetic treatments to increase ca-
pacity and mobility and relieve congestion. One of the specific

28

features that will be considered in this project is a landscaped me-
dian with a low profile concrete barrier which would eliminate the
existing two-way left-turn lane and improve both pedestrian and
vehicular safety. Additionally, curbs and gutters will be installed
along the highway, and a six-foot landscaped planter will be built
on each side of the street. The project will also install equipment
needed to support transit signal priority. As a trial project, Des
Moines and King County Metro have even considered the instal-
lation of a High Occupancy Vehicle and Business Access lane in
each direction of the route as well as bus pullouts and new transit
shelters. To further enhance pedestrian activity, sidewalks will be
installed on both sides of the highway with sidewalk lighting and
a pedestrian-activated signal.
Below: A conceptual rendering
Result and Application for Milwaukee of the SR-99 corridor with road-
The conditions for pedestrians along the corridor were greatly way improvements. Some im-
improved and the efforts of the transportation department were provements include a landscaped
median,HOV lane, left-turn lane,
appreciated by the citizens of Des Moines. With the facility im-
bus pullouts and transit shelters,
provements, the frequency of walking was significantly increased. and paved crosswalks.


CASE STUDY 10: TOTAL FACILITIES OVERHAUL
Location
Cleveland Heights, Ohio

Problem
Severance Circle, surrounded by a high-use commercial and re-
tail development in a vital suburb, is perceived to be unfriendly
to pedestrians and bicyclists. Due to very little accommodation
for pedestrians and bicyclists, at times it forces them to cut into
vehicular lanes at the risk of their personal safety. Despite being
enclosed by a shopping mall, Severance Circle was not properly
connected to other surrounding land uses.

Below: Bike lanes, mid-block Background
crosswalks and signals, benches The Canyon Johnson Urban Fund purchased the land and rede-
and bus shelters were added to veloped the center in 2002. They agreed to dedicate Severance
Severence Cirlce to enrich the Circle as a public street and to build a complete sidewalk system.
pedestrian experience and en-
Funds were set aside by the buyer, the seller, and the City for
courage walking, biking, and
public transit instead of driving. road and sidewalk improvements.

Solution
With an array of goals formulated by the Department
of Planning and Development, a variety of measures
were implemented. These measures include provision
of benches and bus shelters, sidewalks abutting build-
ing facades to provide storefront displays, addition of
pedestrian activated walk signals at busy intersections
and at mid-block crossings, and the installation of light
poles, shade trees, and awnings. One of the significant
construction projects involved converting the four-lane
road into two-lanes with a center left-turn lane and bike
lanes on either side. As an added measure, enforcement
of speeding and other dangerous driving was stepped
up, and numerous tickets were issued.

Completed in 2003, the street project has formed a com-
plete and connected sidewalk system, created common
spaces, and installed benches, bus shelters, pedestrian-
scaled lights, trees, and other landscaping. Dedicated
bicycle lanes were added and the four-lane road was
reconfigured. With all these facility improvements it has
been reported by city engineer that during the 2003
holiday shopping rush, vehicular traffic moved without
significant delay, without speeding, and the new side-
walks and crosswalks were also used by pedestrians.

30

PROGRAM BEST PRACTICES
The program best practices are short-term activities or events PROGRAMS
designed to promote and encourage walking. They may have 1. SAFETY TRAINING
long-lasting effects on the community or city where implemented, 2. “CROSS SAFELY,
but they are designed to achieve short-term goals and address DRIVE SAFELY”
specific problems. Many of the case studies have an objective of 3. EXTREME POSTER
educating the public or encouraging walking as a viable transpor- CAMPAIGN
tation option either in tandem with public transit and biking or as 4. PUBLIC TELEVISION
an alternative to the automobile. Like the project best practices, SAFETY VIDEOS
the programs are from around the country and provide a wide 5. WALK THERE!
range of urban to suburban experiences. CHALLENGE
6. BILINGUAL SCHOOL
CASE STUDY 1: SAFETY TRAINING EDUCATION
Location
Tucson, Arizona

Background
The safety training program was developed to improve safety
for pedestrians and bicyclists. Arizona boasted the second highest
fatality rate for pedestrians at 13% of total traffic fatalities (NHT-
SA). Moreover, Tucson spent less than $1 per year per student
on pedestrian and traffic safety education, with even less being
spent on adults. In 2004, the City of Tucson requested federal
transportation enhancement funds to improve pedestrian safety
through public outreach and safety training.
Below: A publication by the City
Solution of Tucson and its partners for
In order to reduce pedestrian and automobile roadway crashes, educating the public about rules,
increase awareness of pedestrian responsibility and tolerance of regulations, activities, and safety
all right-of-way users, the City of Tucson developed television measures for pedestrian and
bicyclists
and radio public service announcements. This was coupled with
the creation of educational videos for police training as well as
for student safety classes to be taught by police officers. Ad-
ditionally, a traffic safety guide with pedestrian maps was created
and handed out. A “share the road” ethic was promoted as the
permanent result.

The City installed 180 poster sized signs promoting the “share
the road” ethic at bus shelters around the city. These signs were
also displayed in forty (40) libraries and bike shops to reach a
larger audience. Lastly, there was a monthly safety newsletter
created and distributed. All handouts- mostly for bicyclists and
motorists- were in both English and Spanish and available on-
line. A separate Bicycle Ambassadors program was also created
and has helped to install over seventy (70) HAWK (high intensity
activated crosswalk) signals at high prioritization location in the
Tucson-Pima County region.

31 BEST PRACTICE CASE STUDIES PROGRAMS

CASE STUDY 2: “CROSS SAFELY, DRIVE SAFELY”
Location
Amherst, Massachusetts

Background
There is heavy pedestrian as well as automobile traffic on the
University of Massachusetts campus, but few pedestrian safety
programs. In the late 1990’s, two pedestrians were killed when
a car stuck them in crosswalks on the University campus. Addi-
tionally, since 2000 an average of four pedestrians per year have
been seriously injured by drivers. In the past, after a complaint
was made about either a pedestrian or a driver not being safe
an officer would be assigned to the area for a few days to patrol
where the complaint was made. Recognizing the lack of safety
between pedestrians and motorists, UMassSAFE- a partnership
between the Governors Highway Safety Bureau and the UMass
College of Engineering Transportation Center- and University
Police partnered together and created the “Cross Safely Drive
Safely”. Federal funding (NHTSA) allowed the program to include
Above: The “Cross Safely Drive education, enforcement, and evaluation.
Safely” Poster which was hung
around the UMass campus Solution
The program included an awareness campaign along with a judi-
cial education component. Safety tips were placed on posters
and bus cards and reinforced through media coverage to remind
residents about safe pedestrian habits. For the first month of
the program violators of either pedestrian or automobile laws
(identified by a plain clothed decoy with a radio) were stopped
Below: An officer discussing the by UMass officers and given a handout but not cited for any
importance of pedestrian/ mo- violation. Each handout included push button hand operator
torist safety on campus. Notice and pedestrian safety tips. For the second month violators were
the “Cross Safely Drive Safely” cited and fined. Additionally, these efforts were publicized in the
poster promoted on the side of
local media.
the bus

Result and Application for
Milwaukee
Despite pedestrian crashes still occur-
ring, it is evident that motorists are
more aware of pedestrians. More motor-
ists yielding the right-of-way to pedestri-
ans is one noticeable results. Addition-
ally, police officers have become more
aware of crosswalk violations which has
led to more consistent enforcement of
the laws. The program was deemed so
successful that UMass has continued the
program despite running out of grant
money.

32

CASE STUDY 3: EXTREME POSTER CAMPAIGN
Location
Ontario, Canada

Background
Ontario recognized a lack of safe habits instilled in its pedestrians
when, in 2002, the City of Toronto reported more than half of all
traffic fatalities were pedestrian fatalities (50). Due to the ex-
treme nature of the information, the Injury Prevention Coalition
created an extreme poster campaign for the City.

Solution
The Injury Prevention Coalition waged a media campaign with the
slogan “Cross the Street as if Your Life Depends on it, Because it
Does”. The Coalition sent posters and brochures to over 900 com-
munity agencies and also had posters on the sides of over thirty
buses. Additionally, a short safety slideshow was developed to be
played in movie theaters for the audience to see while waiting for
the show to begin. Funding was provided through a number of
local contributions.

The initial launch of the campaign was covered by local media
outlets to help get the message out about both the campaign
and the message. It is estimated that the slideshow in movie
theaters reached an audience of 867,000 individuals. In 2009
the Coalition developed a website entitled iNAVIGAIT, dedicated
to education and awareness for pedestrians. www.inavigait.com Above: The Injury Prevention
Coalition poster created to make
an impact in Ontario
CASE STUDY 4: PUBLIC TELEVISION SAFETY VIDEOS
Location
Bethesda, Maryland

Background
Since 1996 a series of videos about pedestrian safety has been
created for playing on public access channels in Maryland. These
videos are designed to educate the public about barriers to pe-
destrian safety.

Solution
Each month a specific issue or case study is highlighted in a
twenty-eight minute episode. Issues are brought to light by ex-
perts, advocates, planners, engineers, and public officials and in-
terviews on topics have been conducted in all fifty states, Canada,
five European countries, and Australia and New Zealand. Some
issues include pedestrian infrastructure, planning in coordination
with transit, and hazards confronting pedestrians.


Over 120 public access cable stations carry the episodes each
month in addition to a DISH Network channel. Viewers include
both citizens and public officials. Moreover, the videos are ar-
chived online and the website received over 100,000 visitors per
year. The program is now archived on Google Video at: http://
video.google.com/videosearch?q=%22Perils+For+Pedestria
ns%22

CASE STUDY 5: WALK THERE! CHALLENGE
Location
Atlanta, Georgia

Background
It was noted that most citizens of Atlanta do not consider walking
as a means of transportation for shorter, neighborhood trips. To
promote health and sustainability, and reduce traffic congestion,
Atlanta’s Downtown Transportation Management Association de-
veloped an education program to encourage walking.

Solution
As part of the “Let’s Walk Downtown” plan, the “Walk There!”
challenge was created. The challenge was for members of the
State Legislature, City Council, and Mayor’s Office to walk instead
of drive. Those elected officials who joined the team also par-
ticipated in promotional events to raise awareness of the heath,
environmental, and social benefits of walking. Free pedometers
Above: The Walk There Challenge were given out to participants who then tracked the number of
is an ongoing program through steps they took each week. In addition to the challenge, walking
the City of Atlanta. maps with sites within easy walking distance to downtown were
created and distributed.

Result
The challenge was taken by many elected officials with almost
2,000 pedometers being distributed. The challenge was also
followed closely by the local media. It was so successful that an
expansion of the challenge is currently being developed.

CASE STUDY 6: BILINGUAL SCHOOL EDUCATION
Location
San Diego, California

Background
Though there was some pedestrian education already in schools,
it was noted that this education was lacking and missing the
target with English as a Second Language (ESL) students. A

34

pedestrian child safety training program was created for a bilin-
gual low-income school where the majority of the children walked
to school.

Solution
A pedestrian education curriculum was developed, translated,
and presented in both English and Spanish. Moreover, standard
videos and images typically used for presentations were replaced
with images from the students’ own neighborhoods making the
presentation more interactive for students.

Post-presentation survey and analysis (two weeks after) indi-
cated that students retained the information better than when
presentations were not retrofitted. The students’ notion that their
parents, Safety Patrol, and siblings were responsible for their Above: A neighborhood image
safety was overcome to help them realize they themselves must used in the school education pro-
be responsible pedestrians. Moreover, the thought that “Cars will gram. The image shows students
always stop for kids” was challenged and the students realized inappropriately crossing the
street without looking for oncom-
that this is not always the case.
ing traffic


POLICY BEST PRACTICES
POLICIES The policy best practices are long-term solutions to enhance the
1. LOCAL COMPLETE pedestrian realm. Some policies take immediate action to impact
STREETS the physical nature of a space or an entire municipality. Other
2. ELEMENTARY SCHOOL policies take aim at a social, behavioral problem that training, ed-
EDUCATION ucation, and reinforcement of good practice is hopeful to change.
3. PEDESTRIAN AND Some solutions are directly applicable while others offer pieces
BICYCLE TRAVEL POLICY which might be compatible in Milwaukee. While this list is not
4. CORRIDOR TRAFFIC comprehensive, these six policy case studies are intended to give
CALMING an idea of the wide range of possible policy solutions the City of
5. TRAFFIC OFFICER Milwaukee must consider.
TRAINING
6. INJURY PREVENTION CASE STUDY 1: LOCAL COMPLETE STREETS
PROGRAM Location
Throughout the nation

Background
Streets designed with only the car in mind limit the option of
mode choice in mobility. These types of streets can be danger-
ous for bicyclists and pedestrians due to their lack of amenities
offered for these mode types. In order to plan for and fund all
modes of transportation, the National Complete Street Coalition
was formed and as a result, the complete streets policy move-
ment has been adopted by municipalities nationwide.
Above: The National Complete
Streets Coalition is the founder
Solution
and all-knowing source for Com-
One solution to an automobile oriented street construction policy
plete Streets
has been the introduction of “complete streets” policies. Complete
Streets policies have been adopted throughout the nation at the
state and local levels through ordinances and resolutions through
quasi-public agencies, and through comprehensive plans and de-
sign manuals. These policies ensure that all users of the streets
are kept in mind when constructing or improving a street. The
general policy framework for complete streets policies includes
seven elements: a vision; specifics on all end users; a compre-
hensive transportation network outside of the project area; ap-
plicability for all agencies and all roads; applicability for all proj-
ects; approval of exceptions; design criteria; context-sensitive
solutions; performance measures and implementation strategies.
This comprehensive approach ensures a complete policy in which
all users are kept in mind and all departments know the approach
as they work on individual projects.
Above: A complete street in Port-
land, Oregon accommodates the Result and Application for Milwaukee
automobile, bicycle, and pedes- The passing of Complete Streets policies has resulted in several
trian in the right-of-way. benefits which include: improved safety; easing of automobile
congestion; help children; improved air quality and fiscal rewards.
Specifically, the City of Seattle, WA adopted a complete streets

36

ordinance requiring all Seattle DOT projects to implement com-
plete streets and specifies all transportation funding sources be
drawn from for the implementation of the policy. Seattle also
includes critical elements of operations and maintenance in its
policy so regular improvements can be made to the existing in-
frastructure.

CASE STUDY 2: ELEMENTARY SCHOOL EDUCATION
Location
Orange County, Florida

Background
After a series of crashes involving school-aged children, Orange
County realized a lack of safe pedestrian training for students in
its schools. A safety team was formed, comprised of the Sheriff’s
Office safety specialist, staff from Police and Fire departments,
engineering specialists, the local school board, and advocacy
organizations to educate and train students

Solution
Within the elementary age, there was a big push to promote “Walk
Your Child to School Day” to help facilitate parents to be a teacher
to their children of safe pedestrian habits. Moreover, a pedestrian
component was added to Safety Villages that were already in
place. Safety Villages are opportunities for public figures such as
police officers and firefighters to engage with students and teach
them general safety around the house and when out in public.
With older students of the Middle and High School age, safe pe-
destrian habits were taught through different media formats and
both active and passive teaching. These included direct in-class Above: Students attract attention
curriculum taught by teachers, presentations by safety officials, to their new pedestrian training
videos, and also posters. program by walking the streets

The process to develop the curriculum took one and a half years.
It was accomplished by education specialists, law enforcement,
engineers, and emergency services. An accurate, balanced, and
consistent message about safety and a clarification of vague
pedestrian laws (i.e. “what constitutes jaywalking?”) was ac-
complished.

CASE STUDY 3: PEDESTRIAN AND BICYCLE TRAVEL POLICY
Location
The State of Kentucky

Background
After the USDOT passed “Design Guidance Accommodating Bicy-
cle and Pedestrian Travel: A Recommended Approach,” the State

37 BEST PRACTICE CASE STUDIES POLICIES

of Kentucky created the Pedestrian and Bicycle Design Guidance
Task Force. The goal of the Task Force was to help guide the Ken-
tucky Transportation Cabinet by creating policies regarding when,
where, and how to implement bicycle and pedestrian facilities.

Solution
The Task Force was able to have design guidelines signed in
as official order, which took a year of monthly meetings to de-
velop. The guidelines ensure that with all new and reconstruct-
ed roadways pedestrians and bicyclists are kept in mind. These
guidelines give designers specific criteria to consider for accom-
modating pedestrians, including land use, existing transportation
networks, transit stops, and public demand.

Through the passing of the Pedestrian and Bicycle Travel Policy,
not only has the safety of pedestrian and bicyclists increased,
but so has non-motorized travel. In just three years the number
of bicycle boarding’s on city buses in Louisville grew six fold. It
is also expected that this policy will reduce vehicle miles traveled
and improve air quality in the state.

CASE STUDY 4: CORRIDOR TRAFFIC CALMING
Location
Albemarle, Virginia

Background
Residents in the Forest Lakes community of Albemarle were
tired of the speeding cut-thru traffic on their major streets. A
survey determined this concern was valid and indeed harming
the community and a solution to the cut-thru speeding traffic was
sought. A committee with a number of residents and representa-
tives from the Department of Transportation, police department,
fire department, and the school board was developed and tasked
with generating a solution for the community.

Solution
As a solution to the cut-thru speeding, a number of improve-
ments for the area were identified. These included speed bumps,
white road edge markings, pavement markings, and pedestrian
signs. School buses were also contributing to the speeding issue
and the school board agreed to ensure that the posted speed limit
would be followed by bus drivers.

During an informal survey process evaluating the potential imple-
mentation of the solutions, there was nearly unanimous support

38

for the new improvements. A DOT representative congratulated
the initiative taken by community members to bring a pressing
issue to light, saying the Department would not have made the
improvements if the community had not spoken up.

CASE STUDY 5: TRAFFIC OFFICE TRAINING
Location
Madison, Wisconsin

Background
It was recognized that traffic officers had not been trained on pe-
destrian issues which included both safety and pedestrian laws.
Additionally, there was a noted lack of discussion about pedes-
trian issues during driver education courses.

Solution
A safety training DVD for officers was developed by a member
of the traffic enforcement safety team within the Madison Police
Department. After being used to train officers, the DVD was
then modified appropriately for viewing by the general public.
Copies of this DVD were distributed to high school and private
driver education instructors and AAA. Additionally, training was
developed to be presented by officers to companies that spend
significant amounts of time on the road. Above: A training video from
the Madison Police Department
Result and Application for Milwaukee depicts a common confusing sce-
Traffic officers are now more versed in both pedestrian safety nario for pedestrians and traffic
and laws. Additionally, more time is spent by driver education
instructors on pedestrian related issues. Due to the successful-
ness of the DVD, the city is now working to create a training
book which will help in training the public in the future.

CASE STUDY 6: INJURY PREVENTION PROGRAM
Location
Miami-Dade County, Florida

Background
In the state of Florida, Miami-Dade County had the highest num-
ber of pedestrian injuries. Moreover, it is the third highest in the
nation. Recognizing this, and the associated costs of the prob-
lem presented, the Florida DOT lookedfor the causes, effects, and
then solutions to the high pedestrian injury rate.

Solution
The initial steps of the cause, effect and solution identification
process was to analyze hospital records of those injured, conduct
crash scene visits, speak with patients and their families directly

39 BEST PRACTICE CASE STUDIES POLICIES

and conduct police interviews to find any commonalities between
pedestrian crashes. It was discovered that many sites had issues
regarding obstructed views and long distances between marked
intersections. It was also noted that 293 of the crashes were with
pedestrians under the age of 14. As a policy, Miami-Dade County
developed an injury prevention program and implemented it in
184 elementary schools. The program was taught to students for
a half-hour session once per week over a 4 week period.

With the utilization of pre and post tests it was discovered that
gains in pedestrian knowledge was maintained for at least a three
month period- when the second post test was conducted. The
Above: Children participate in a number of children admitted to a Level 1 trauma center in Miami-
safe pedestrian program. Dade as a result of a pedestrian injury dropped from ninety-three
to just fifty-two in a three year span.

40

MILWAUKEE SITE SELECTION
The Milwaukee Site Selection is the first step in the research pro-
cess. It was conducted to decide which two focus areas the Plan-
ning Group would focus on for pedestrian improvements.

To Begin, data was gathered for the past three years of auto- pe-
destrian crashes from the Milwaukee Police Department’s (MPD)
interactive mapping website, “Compass”. This data contained
populated fields that displayed detailed information about each
crash. After analyzing the data it became apparent that the ad-
dress locations of the crashes needed to be cleaned in order for
ArcMap to geocode the crash locations. A customized address
locator was created based-off of the Milwaukee DIME file roads
layer from Map Milwaukee.

After reviewing the geocoded results to ensure data location ac-
curacy, a point density geoprocessing tool was utilized to gain fur-
ther understanding of crash clustering effects over the last three
years(essentially a hotspot analysis technique). Upon creation of
this image, a summary output file was created that counted the
number of crashes at the same location. Each location with a
summary of greater than two crashes was analyzed to determine
if it fell within an area that the hotspot image determined as a
frequent crash location. If it did fall within this area it was further
examined for such criteria as: number in intersecting streets,
number of crashes, alternate transportation access, speed limits,
and land use. If the location fell outside a hotspot, it was dis-
missed from further analysis.

After compiling the crash records, the results indi-
cated that over the last three years, two sites had
a total of five crashes and one with a total of four
crashes. The two sites chosen were North 91st
Street & West Silver Spring Drive, and at South
6th Street & West Lincoln Avenue. The reasons
why these sites where chosen above the rest is
because of their high crash counts, variety of uses,
structures near the street, and the framework of
these streets are typical throughout Milwaukee,
making a model more adaptable to other parts of
the city in future studies.

Once the site selection process was complete, the
group was able to conduct research on best prac-
tice case studies to determine which projects, pro-
grams, and policies were best applicable to the two
Milwaukee sites.

43 MILWAUKEE SITE SELECTION

44

TARGET AREA A
91ST AND SILVER SPRING
Upon completion of the GIS analysis, the intersection of N 91st
Street & W Silver Spring Drive (CTH E) in the north side of Mil-
waukee was one of the two sites used to conduct research on best
practices. This site, along with the intersection of N 35th Street &
W Capitol Drive (STH 190), was the intersection with the highest
pedestrian crash rates in the City of Milwaukee. This intersection
has an annual average traffic count of 19,700 and posted speed
limits of 35 miles per hour on 91st Street and 40 miles per hour
on Silver Spring Drive. This intersection has a similar framework
as other intersections seen throughout the City of Milwaukee.

SITE SELECTION Image from the Wisconsin De-
The map to the right, titled “Crash Location: N. 91st St. and W. partment of Transportation’s
Silver Spring Ave.” is an aerial view that displays the orientation 2009 “Wisconsin Highway Traffic
and the land uses surrounding the intersection. Volume Data”

The map on page 48 titled “Crash Frequency:
N. 91st St. and W. Silver Spring Ave.” displays
the crash frequency for the intersection of S.
91st St. and W. Silver Spring Ave. When cal-
culating the frequency the ArcGIS program
calculates the number of points (crashes) with
in a 1/4 mile radius. The output of the point
density tool is an image with a color ramp dis-
playing greater number of crashes in the area
as a darker color, i.e. blue. Because this inter-
section has such a high number of crashes,
and in tern a high number of points, a ratio of
1:1 (points to crashes), enabled this location
to have a high density of crashes.

47 TARGET AREAS AREA A: 91st STREET & SILVER SPRING DRIVE

48

WALK SCORE
The Walk Score for the neighborhoods around the intersection of
91st and Silver Spring is comprised of the Silver Swan Neighbor-
hood and the Valhalla neighborhood. The table on the right indi-
cates where each of these neighborhoods ranks amongst Milwau-
kee neighborhoods. The Silver Swan neighborhood score is 50.
It has a population of 3,208 people which is .02% of Milwaukee’s
population. Valhalla is ranked 135 and has a score of 46. It con-
tains 0.7% of Milwaukee’s population, or 4,301 people.

The overall Walk Score for the area is a car-dependent 38. The
maps and charts below show a fifteen minute walk to the various
services in the areas. Because of the low number of intersections
in the area and long block lengths, this area is ranked negatively
on pedestrian friendliness. While it does have high scores for
walking distance to schools (Bryant Elementary only) and bank-
ing (Chase ATM), it ranks poorly in terms of grocery stores and
restaurant choices which are not fast food. Providing access to
better food choices is one way Milwaukee can encourage walking
and promote a healthier lifestyle for its residents. In addition,
by locating smaller scale neighborhood services within shorter
distances, the City can better connect people to other modes of
transportation and increase the frequency of walking.
Better urban design of block
lengths and street amenities
will provide a safer, less car-
dependent walking experience
at 91st and Silver Spring.

49 TARGET AREAS AREA A: 91st STREET & SILVER SPRING DRIVE

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