draft active transportation plan...2020/12/21 · this document is part 1 of a two-part plan. part...

Draft Active Transportation Plan Part 1 2020 and Beyond

WSDOT Active Transportation Division

WSDOT DRAFT ACTIVE TRANSPORTATION PLAN | 2020 AND BEYOND

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Title VI Notice to Public

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WSDOT DRAFT Active Transportation Plan, Part 1, 2020 and Beyond | December 2020

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Contents 1

Executive summary ...................................................................................... 5 2 Recommendations .......................................................................................................... 7 3

Next steps........................................................................................................................ 9 4

Chapter 1: Charting a path forward ......................................................... 10 5 Introduction: We need a compass .............................................................................. 10 6

Plan contents and organization .................................................................................. 12 7

Plan purpose ................................................................................................................. 13 8

Why we need to plan for active transportation ....................................................... 15 9

The planning process ................................................................................................... 17 10

Active transportation plan goals ................................................................................ 18 11

Guiding principles and themes ................................................................................... 19 12

Performance program ................................................................................................. 21 13

Equity ............................................................................................................................. 21 14

Moving forward together ........................................................................................... 24 15

Terms used in this plan ................................................................................................ 25 16

Chapter 2: Active transportation in Washington state .......................... 27 17 Introduction: interest, opportunities, issues ............................................................. 27 18

What people in Washington say about active transportation ................................ 28 19

Benefits of bicycling and walking .............................................................................. 32 20

Health benefits...................................................................................................................................... 33 21

Environmental benefits ...................................................................................................................... 37 22

Economic benefits ................................................................................................................................ 39 23

Mobility, accessibility, and congestion relief benefits .............................................................. 41 24

Active transportation use: Who, where, and how much ......................................... 43 25

National numbers ................................................................................................................................ 43 26

Active transportation in Washington state ................................................................................. 47 27

Counts of people walking and biking............................................................................................ 48 28


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Count estimates for Washington state ......................................................................................... 49 29

How WSDOT uses count data ......................................................................................................... 51 30

Survey of city and county count programs .................................................................................. 52 31

School trips: How children are getting to and from school .................................................... 52 32

People with disabilities and the elderly ........................................................................................ 53 33

Walking and biking traffic crashes ............................................................................. 55 34

Target Zero ............................................................................................................................................ 55 35

Traffic deaths ......................................................................................................................................... 59 36

Serious injuries ...................................................................................................................................... 64 37

Societal value of life ............................................................................................................................ 67 38

Crash locations and demographics ................................................................................................ 68 39

Takeaways from Chapter 2 .......................................................................................... 74 40

Chapter 3: Understanding the system and needs ................................... 75 41 Introduction .................................................................................................................. 75 42

Part A: A new direction for data-based decision making ........................................ 78 43

Focusing active transportation network development in population centers .................. 80 44

Analyzing level of traffic stress ........................................................................................................ 83 45

Highway crossing availability ........................................................................................................102 46

Part B: State routes and facilities ............................................................................. 106 47

Existing network .................................................................................................................................106 48

United States bicycle route system...............................................................................................119 49

Significant trails and networks in Washington ........................................................................121 50

Modal connections ............................................................................................................................124 51

Tracking and monitoring statewide needs .............................................................. 127 52

Facilities inventory .............................................................................................................................127 53

Walk and bike facility types ...........................................................................................................128 54

Asset management ...........................................................................................................................129 55

Best practices in bicyclist and pedestrian infrastructure data collection .........................130 56

Takeaways from Chapter 3 ........................................................................................ 132 57


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Chapter 4: Cost estimates for statewide needs and opportunities ..... 133 58 Introduction ................................................................................................................ 133 59

Infrastructure needs ................................................................................................... 141 60

Speed management for safety .......................................................................................................142 61

Separated pedestrian and bicyclist facilities .............................................................................148 62

Crossing treatments ..........................................................................................................................153 63

High-speed rural segment gaps ....................................................................................................157 64

Bridge retrofit/improvements for active transportation ........................................................162 65

Opportunity: Washington bikeways and trails network ........................................................163 66

Connecting regional trail systems ................................................................................................163 67

Wayfinding and signage .................................................................................................................165 68

Addressing local needs .....................................................................................................................169 69

Maintenance and operating support needs ............................................................ 172 70

Maintenance ........................................................................................................................................172 71

Decision analysis tool .......................................................................................................................173 72

Pedestrian and bicyclist count data collection and analysis ...............................................174 73

Accessibility and asset management data ................................................................................174 74

Innovation and adaptation .............................................................................................................175 75

Chapter 5: Conclusion ............................................................................. 176 76 Notable concepts ...............................................................................................................................176 77

Guidelines and resources ................................................................................................................176 78

Data .......................................................................................................................................................177 79

Local and regional planning and development .......................................................................177 80

Meeting the needs of Washingtonians .......................................................................................178 81

Future updates ....................................................................................................................................178 82

Part 2 of the plan ........................................................................................................ 179 83

Appendices ............................................................................................... 181 84 Appendix A: Acknowledgements ............................................................................. 181 85

Appendix B: Guiding themes .................................................................................... 181 86


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Appendix C: Outreach and engagement ................................................................. 181 87

Appendix D: Methods of analysis ............................................................................. 181 88

Appendix E: Usage counts ......................................................................................... 181 89

Appendix F: Cost estimation background ............................................................... 182 90

Appendix G: Planning and reporting ....................................................................... 182 91

Appendix H: References cited ................................................................................... 182 92 93


Chapter 1 5

Executive summary 94 The 2020 Washington State Active Transportation Plan is a comprehensive update to the 2008 95

Bicycle Transportation and Pedestrian Walkways Plan that: 96

● Assesses the statewide needs of active transportation users who walk, run, use a mobility 97

assistive device such as a wheelchair, cycle (whether on two wheels or three), or use a 98

small personal device such as a foot scooter or skateboard. 99

● Defines the state’s interest in active transportation infrastructure (located on, connecting 100

to and across, or serving as an alternate route to use of state highways). 101

● Focuses on multimodal network connectivity and how level of traffic stress measures can 102

be used to evaluate routes for future changes, particularly in population centers. 103

● Provides information that decision makers can use in making policy and investment 104

recommendations within a larger context. For example, local and regional efforts have 105

created portions of what could become a statewide active transportation network. 106

Closing these gaps by leveraging past investments in trails can create safer connections 107

in and between communities and support local economies seeking to recover from the 108

effects of the COVID19 pandemic and other challenges. 109

The statewide active transportation system includes: 110

● State highways that allow active transportation use. Note that portions of interstates are 111

not open to active transportation use. Chapter 3 provides more information on existing 112

facilities. 113

● City streets. 114

● County roads. 115

● Trails on public lands. 116

● Sidewalks, bike lanes, and paths in every type of jurisdiction. 117

● Connections to airports, ferry terminals, passenger rail, and transit. 118

The plan’s findings identify the current condition of the active transportation system as a 119

patchwork, with high-quality segments in some locations and no facilities in others. It has not 120


Chapter 1 6

historically been understood or managed as an overall network across jurisdictional boundaries, 121

which has constrained use of active modes. 122

The needs of the system include complete facilities suitable for people of all ages and abilities; 123

safe and well-marked crossings located for route directness; signage and wayfinding; improved 124

capacity to understand and manage these assets; and consistent maintenance and preservation. 125

A focus on population centers will support safety and mobility in places where current and 126

future demand are greatest. 127

The larger context of active transportation use is grounded in a cyclical process reflected in this 128

plan. It constitutes a positive feedback loop as investments are made: 129

● Improve the facilities so that 130

● Participation increases so that 131

● Society benefits from the effects of increased active transportation use. 132

WSDOT developed this plan through: 133

● Extensive research that documents the many benefits of active transportation including 134

improved physical and mental health, economic vitality, access to opportunity, and 135

environmental benefits. Chapter 2 provides more information. 136

● Evaluation of emerging tools and best practices that led to the application of level of 137

traffic stress. LTS provides an objective, quantitative assessment of roadway 138

characteristics that affect safety, mobility, and access for active transportation use. These 139

recommended practices enable evaluation, prioritization, and measurement of change 140

over time. Chapter 3 provides more information. 141

● Community engagement from thousands of people that identified major barriers or 142

challenges for safety and mobility and reinforced findings from research into best 143

practices. Key themes include the importance of complete and connected facilities, safe 144

crossings, lower speed limits in places where more people need or want to walk or bike, 145

maintenance, and accessible facilities designed to be used by people of all ages and 146

abilities. Chapter 2 provides more information. 147


Chapter 1 7

● Guidance of the Stakeholder Steering Committee that resulted in the plan’s goals of 148

Networks, Safety, Opportunity, Participation, and Partnership. These goals are 149

interrelated and interdependent and acknowledge that partnerships are essential to 150

creation of complete networks that increase and enhance safety, opportunity, and 151

participation. Chapter 1 provides more information. 152

● Participation of hundreds of WSDOT staff and agency partners who provided technical 153

information and insight and ensured consistency with other planning efforts. 154

This document is Part 1 of a two-part plan. Part 1 covers: 155

● Purpose and need of the statewide active transportation plan. 156

● Goals for active transportation. 157

● Benefits of active transportation. 158

● Current state of active transportation in Washington. 159

● Concerns and priorities gathered through public engagement for the plan’s 160

development. 161

● Methodology, data sources, and results of a statewide needs assessment focused on 162

state right-of-way and its suitability for active transportation. 163

● Broad cost estimates for changes to state right-of-way and local systems to improve 164

conditions for active transportation; not presented as location-specific details. 165

Part 2 will cover: 166

● Identification and discussion of policy topics relevant to the plan’s analysis and 167

implementation. 168

● Performance measures associated with the plan’s goals. 169

RECOMMENDATIONS 170

● Complete a statewide network across jurisdictional boundaries. 171

● Reduce the level of traffic stress on the network to make it possible for more people to 172

use active transportation safely and comfortably. 173


Chapter 1 8

● Address gaps on or created by state routes in the best available location, which may be 174

on or off the state route depending on local plans and facilities. 175

● Align policy changes, funding, and commitment to meet the state’s Target Zero goal of 176

eliminating serious injuries and deaths from traffic and mobility and environmental goals 177

for mode shift. 178

● Report on the performance measures selected for the plan to track change over time in 179

the context of transportation policy goals. 180

● Prioritize investments in locations with highest needs to make the most difference. 181

182


Chapter 1 9

NEXT STEPS 183

● Develop and release Part 2 of this plan in 2021 to address policy topics and performance 184

measures. 185

● Develop an implementation plan for WSDOT’s internal use to apply the plan’s 186

information and analysis in support of the agency’s strategic goals and transportation 187

policy goals. 188

● Build on this plan’s baseline analysis going forward and continue to deepen 189

understanding. 190

● Continue efforts to align WSDOT system projects and programmed activities with local 191

plans and projects. 192

● Evaluate and report progress and issue updates to this plan on a regular cycle. 193


Chapter 1 10

Chapter 1: Charting a path forward 194

INTRODUCTION: WE NEED A COMPASS 195

The Washington state Active Transportation Plan, 2020 and Beyond, provides a foundation for 196

the development and evolution of the statewide active transportation system. As decision 197

makers at every level of government confront budget realities, information on how to identify 198

and prioritize active transportation needs is more critical than ever. 199

The state and its residents face many challenges including rising costs for health care and 200

housing; land use decisions that result in disconnected transportation networks; and economic 201

shifts that hit individual pocketbooks hard as well as causing cities and towns to reinvent 202

themselves. In the year 2020, the state and nation are dealing with the additional burdens from 203

a pandemic. The good news is that investments in making walking, biking and rolling 204

connections can help address many of these challenges while creating much-needed jobs.1 205

“Active transportation” includes walking or running; the use of a 206 mobility assistive device such as a wheelchair or power scooter; 207

cycling; and the use of small personal devices such as foot scooters or 208 skateboards. This definition includes both traditional and electric-209

assist bicycles and other devices. The plan uses the terms “walking and 210

1 USDOT. N.d. Active Transportation: Relationship to Public Health. Rails to Trails Conservancy.

2019. Active Transportation Transforms America: The Case for Increased Public Investment in

Walking and Biking Connectivity. Recreation and Conservation Office. 2020. Economic,

Environmental, & Social Benefits of Recreational Trails in Washington state. Recreation and

Conservation Office. 2020. Health Benefits of Contact with Nature. A study of the American

Recovery and Reinvestment Act found that active transportation projects created 17 jobs per $1

million investment—more than any other type of transportation project. Dowell, Paula, and Lisa

Petraglia. 2012. Mining Recovery Act Data for Opportunities to Improve the State of Practice for

Overall Economic Impact Analysis of Transportation Investments. NCHRP 08-36, Task 103.


Chapter 1 11

rolling” or “walking, rolling, and bicycling” to refer to the entire range 211 of active transportation. 212

Washington offers many beautiful places to walk and roll, from town centers and 213

neighborhoods to trails through varied landscapes. But a trip is challenging or even impossible 214

if: 215

● The sidewalk ends halfway to the bus stop or other destination. 216

● There is no bike lane. 217

● There is no curb cut for a wheelchair user. 218

● No one swept the leaves or plowed the snow. 219

● Streets are wide, busy, and there are no breaks in traffic, or motorists will not stop and 220

yield to pedestrians. 221

Recent studies2 shows that accessible active transportation provides many benefits to individuals 222

and communities, including: 223

● Low-cost and flexible access to services and opportunities. 224

● Enhanced quality of life. 225

● More livable streets and roads. 226

● Improved personal and community health. 227

● Increased capacity on roads due to less driving. 228

● Reduced greenhouse gas emissions and other transportation-related pollutants. 229

● Improved connections to other modes such as transit, ferries, and trains. 230

● Reduced “chauffeuring” burdens, particularly for parents. 231

2 Rails to Trails Conservancy. 2019. Active Transportation Transforms America: The Case for

Increased Public Investment in Walking and Biking Connectivity. Litman, Todd. 2020. Evaluating

Active Transport Benefits and Costs. Victoria Transportation Policy Institute. Trust for Public

Lands. 2016. Methodology for assessing the benefits of active transportation projects.


Chapter 1 12

● Reliable options when other modes of transportation fail.3 232

For all these benefits, people must be able to find their way. In the transportation context, it’s 233

tempting to refer to a plan as a roadmap. Travelers using a defined road network use a road 234

map. Travelers charting new territory – such as the incomplete and, in places, nonexistent 235

statewide active transportation network – rely on a compass. With a compass, they explore 236

unknown terrain and create a path for others to use in the future. 237

This plan will serve as our compass. 238

239

PLAN CONTENTS AND ORGANIZATION 240

The 2020 Washington state Active Transportation Plan replaces the 2008 Bicycle Transportation 241

and Pedestrian Walkways Plan. Since 2008, much has changed in the world of transportation 242

and within the Washington state Department of Transportation. The agency has an Active 243

Transportation Division created in 2017 that will lead the implementation of the plan’s 244

3 Weinberger, Hannah. 2019. New tsunami evacuation maps show the fastest way to escape the

Big One on foot. Oct. 18. Crosscut. Wang, Haizhong, Alireza Mostafizi, Lori A. Cramer, Dan Cox,

and Hyoungsu Park. 2016. An agent-based model of a multimodal near-field tsunami

evacuation: Decision-making and life safety. Transportation Research Part C: Emerging

Technologies. Vol. 64. Walker, Alyssa. 2018. What’s the best way to evacuate Los Angeles?

Curbed LA.

https://crosscut.com/2019/10/new-tsunami-evacuation-maps-show-fastest-way-escape-big-one-foothttps://crosscut.com/2019/10/new-tsunami-evacuation-maps-show-fastest-way-escape-big-one-foothttps://www.sciencedirect.com/science/article/pii/S0968090X15004106#!https://www.sciencedirect.com/science/article/pii/S0968090X15004106#!https://la.curbed.com/2018/12/13/18131163/wildfire-earthquake-evacuations-cars


Chapter 1 13

recommendations. The agency has also adopted a performance program and this plan offers 245

metrics to help prioritize investment decisions as and when funding is available. 246

This plan is developed in two parts: 247

● Part 1: This portion of the plan covers: 248

○ Purpose and need of statewide active transportation 249

○ Current conditions and benefits of active transportation use, 250

○ Concerns and priorities gathered through public engagement for the plan’s 251

development, and 252

○ The methodology and results of a statewide needs assessment. 253

● Part 2: To be published after Part 1, this portion will include: 254

○ Identification and discussion of relevant policies, 255

○ Performance metrics, and 256

○ Next steps. 257

PLAN PURPOSE 258

The purposes of this plan are to fulfill planning requirements4 as well as meet the needs of 259

WSDOT and federal, tribal, regional, and local partners by: 260

● Assessing the statewide needs of active transportation users who walk, run, use a 261

mobility assistive device such as a wheelchair, cycle (whether on two wheels or three), or 262

use a small personal device such as a foot scooter or skateboard. 263

● Defining the state’s interest in the statewide active transportation system as: 264

○ Identifying and supporting how active transportation contributes to the state’s 265

transportation, health, environmental, economic, and land use goals. 266

○ Meeting the transportation needs of people who cannot or do not drive. 267

4 Appendix H, Planning and Reporting, provides more details on state and federal requirements.


Chapter 1 14

○ Contributing to the safety and mobility of the traveling public, as per RCW 268

47.26.300, RCW 47.30.020, and RCW 47.01.078. 269

○ Reducing traffic congestion, greenhouse gas emissions, and energy use by shifting 270

uses from driving to active transportation, as per RCW 47.26.300. 271

○ Meeting performance goals and complying with reporting requirements. 272

● Offering recommendations for the statewide active transportation system, which 273

includes: 274

○ State highways that allow active transportation use.5 275

○ Infrastructure located on, connected to, or serving as n alternate route to state 276

highways, including: 277

○ City streets and sidewalks. 278

○ County roads. 279

○ Trails on public lands. 280

○ Connections to transit, ferry terminals, passenger rail, and airports. 281

● Focusing on multimodal network connectivity and use of level of traffic stress measures 282

to describe state highways. These recommended practices enable evaluation, 283

prioritization, and measurement of change over time. The application of these principles 284

accomplishes two long-term interrelated goals: 285

○ Completing a statewide network across jurisdictional boundaries. 286

○ Reducing the level of traffic stress on the network to make it possible for more 287

people to use active transportation safely. 288

● Providing information that decision makers can use in making policy and investment 289

recommendations. For example, local and regional efforts have created portions of what 290

could become a statewide active transportation network of trails and bikeways, but this 291

5 Some portions of interstates are not open to active transportation use. Chapter 3 provides

more information.

https://apps.leg.wa.gov/rcw/default.aspx?cite=47.26.300https://apps.leg.wa.gov/rcw/default.aspx?cite=47.26.300https://apps.leg.wa.gov/rcw/default.aspx?cite=47.30.020https://app.leg.wa.gov/RCW/default.aspx?cite=47.01.078https://apps.leg.wa.gov/rcw/default.aspx?cite=47.26.300


Chapter 1 15

network has gaps. Closing these gaps by leveraging past investments in trails can create 292

safer connections in and between communities and support local economies. 293

WHY WE NEED TO PLAN FOR ACTIVE TRANSPORTATION 294

People who engaged with WSDOT staff during the plan’s development said they want to move 295

through their neighborhoods and travel safely wherever they need to go, and they want to be 296

able to use whichever mode of travel best meets their needs. Yet the complex transportation 297

system created over decades does not fully provide this freedom and independence for active 298

transportation users, especially those who are subject to greater burdens or barriers created by 299

policy, system design, and other factors. 300

As illustrated in Figure 1.1, every trip that any person makes begins and ends at pedestrian 301

spaces (represented by the circles). People expect these spaces to connect seamlessly to other 302

modes. This is not the case because not all connections accommodate every person. 303


Chapter 1 16

304

Figure 1.1 — Active transportation modes can be used from start to finish for a given trip, or as the first and 305 last segments of a trip involving other modes of transportation. 306

Benefits of measuring multimodal network connectivity 307

According to the Federal Highway Administration’s Guidebook for Measuring 308

Multimodal Connectivity. measuring connectivity positions a transportation agency to: 309

● Enhance access to jobs, training, schools, and economic centers. 310

● Accelerate project delivery by capturing efficiencies in economies of scale, project 311

sequencing, construction phasing, financing, and community involvement. 312

● Increase accountability of efforts to expand mobility options and system efficiency. 313

● Prioritize infrastructure investments that fill gaps, address barriers in the transportation 314

network, and increase safety for all users. 315

● Partner with the private sector to provide innovative multimodal transportation services, 316

and capture opportunities relating to shared-use mobility and automated and connected 317

technology. 318

https://www.fhwa.dot.gov/environment/bicycle_pedestrian/publications/multimodal_connectivity/https://www.fhwa.dot.gov/environment/bicycle_pedestrian/publications/multimodal_connectivity/https://www.fhwa.dot.gov/environment/bicycle_pedestrian/publications/multimodal_connectivity/


Chapter 1 17

THE PLANNING PROCESS 319

The project team (listed in Appendix A, Acknowledgements) met with WSDOT staff and external 320

partners in every WSDOT region to hear what core elements the plan should address to improve 321

network connectivity and quality. WSDOT staff emphasized the need for decision-making tools 322

to enable them to assess design alternatives, place individual project locations into a larger 323

context, and support working with local jurisdictions. 324

325

Figure 1.2 — Research, consultation with partners and the public, and recommendations from the 326 stakeholder steering committee constantly inform each other. 327

The project team developed this plan through: 328

● Extensive research to document the many benefits of active transportation including 329

improved physical and mental health, economic vitality, access to opportunity, 330

environmental benefits, and more. Chapter 2 provides more information. 331

● Extensive research that led to the adoption and refinement of level of traffic stress as an 332

objective and quantitative approach to characterize state right-of-way for active 333


Chapter 1 18

transportation use. Chapter 3 and Appendix D, Methods of Analysis, provide more 334

information. 335

● Community engagement from thousands of people across the state that aided 336

identification of barriers to active transportation use and goals for the plan. Chapter 2 337

and Appendix C, Outreach and Engagement provide more information. 338

● Guidance from the stakeholder steering committee that recommended the plan’s goals 339

of networks, safety, opportunity, participation, and partnership. These goals are 340

interrelated and interdependent and acknowledge that partnerships are essential to 341

creation of complete networks that support safety, opportunity, and participation. 342

Appendix A, Acknowledgements, lists members of the committee and project team. 343

● Participation of hundreds of WSDOT staff and agency partners that provided technical 344

information and ensured consistency with other planning efforts. 345

ACTIVE TRANSPORTATION PLAN GOALS 346

Meeting the goals for active transportation requires working through a set of actions like those 347

that created today’s complete networks for driving: build it and they will come. When they do, 348

the increase in walking and rolling use provides safety, mobility, and equity benefits for all. 349

350

Figure 1.3 — Networks, Partnerships, Safety, Opportunity, Participation are Active Transportation Plan goals 351 that result in complete, comfortable connections for all. 352


Chapter 1 19

The plan’s goals are: 353

● Networks: Connect comfortable and efficient walking and rolling networks so people 354

can reach their destinations and other forms of transportation and have everyday access 355

to physical activity. 356

● Safety: Eliminate deaths and serious. injuries of people walking and rolling. 357

● Opportunity: Eliminate disparities in access to safe, healthy, active transportation 358

connections for people and communities most dependent on walking, bicycling, and 359

transit. 360

● Participation: Increase the percentage of everyday short trips made by walking or 361

bicycling. 362

● Partnership: Collaborate and coordinate with local, regional, state, tribal, and federal 363

partners to complete and improve the network across boundaries. 364

Active transportation in the future: The integrated transportation 365 system of the future provides safe, welcoming, and connected 366

networks that invite and enable everyone to walk and roll where they 367 need to go. 368

GUIDING PRINCIPLES AND THEMES 369

The plan’s stakeholder steering committee included representatives from a variety of 370

organizations, perspectives, and lived experience. This committee’s discussions highlighted 371

principles and themes that reinforced those identified through research and community 372

engagement. These are equally important and mutually reinforcing: 373

● Comfortable connections make all the difference. 374

● Benefits for people of all ages and abilities. 375

● Good roads work for everyone. 376

● Partnerships are essential. 377

● The safe systems approach works. 378

● Equity requires action. 379

● Transportation dramatically affects health. 380


Chapter 1 20

● A multimodal system provides resiliency. 381

● We can build the future. 382

These topics are addressed and supported through the performance program, which is 383

summarized below and detailed in Chapter 2 and Appendix B: Guiding Themes. 384

385

Figure 1.4 — A positive feedback loop results from improving conditions for walking and rolling. These 386 improvements reduce crash exposure, leading to fewer collisions. People feel comfortable and confident, 387 mode shift redistributes demand, and more active trips result. Benefits include cleaner air and water, 388 improved health, and reduced VMT, GHG, crashes, congestion, and cost. These benefits in turn improve 389 conditions for walking and rolling. 390


Chapter 1 21

PERFORMANCE PROGRAM 391

This plan is consistent with WSDOT’s performance program,6 as it provides information for how 392

active transportation performance can be determined. The steps to improving performance for 393

active transportation are: 394

1. Improve the facilities so that, 395

2. Participation increases so that, 396

3. Society benefits from the effects of increased active transportation use. 397

Metrics concerning network connectivity and level-of-traffic stress on facilities apply to state-398

owned infrastructure specifically. Over time with data added for local facilities adjacent to state 399

routes, WSDOT and its partners can develop a more complete picture of network connectivity 400

and usability. 401

EQUITY 402

Equity emerged as a critical framework for active transportation throughout research, 403

engagement, and analysis. Regardless of social, economic, or demographic differences, all 404

people need access to transportation options. 405

Transportation inequities are especially problematic when transportation is the limiting factor for 406

getting to jobs, healthcare, education, and community services. The key equity issues showing 407

up in active transportation in both Washington data and national studies concern fatal and 408

serious. traffic crashes; lack of infrastructure, especially ADA-accessible facilities; and long 409

distances between housing, jobs and resources.7 Not all of these can be addressed through 410

6 WSDOT Accountability.

7 Safe Routes to School National Partnership. 2015. At the Intersection of Active Transportation

and Equity. Lee, Richard J., Ipek N. Sener, and S. Nathan Jones. 2015. Understanding the role of

equity in active transportation planning in the United States. Transport Reviews 37:2. PolicyLink.

2009. Healthy, Equitable Transportation Policy: Recommendations and Research.

https://wsdot.wa.gov/accountability/homehttps://saferoutespartnership.org/sites/default/files/resource_files/at-the-intersection-of-active-transportation-and-equity.pdfhttps://saferoutespartnership.org/sites/default/files/resource_files/at-the-intersection-of-active-transportation-and-equity.pdfhttps://saferoutespartnership.org/sites/default/files/resource_files/at-the-intersection-of-active-transportation-and-equity.pdfhttps://www.tandfonline.com/doi/abs/10.1080/01441647.2016.1239660?src=recsys&journalCode=ttrv20https://www.tandfonline.com/doi/abs/10.1080/01441647.2016.1239660?src=recsys&journalCode=ttrv20https://www.tandfonline.com/doi/abs/10.1080/01441647.2016.1239660?src=recsys&journalCode=ttrv20https://www.policylink.org/resources-tools/healthy-equitable-transportation-policy-recommendations-and-researchhttps://www.policylink.org/resources-tools/healthy-equitable-transportation-policy-recommendations-and-research


Chapter 1 22

transportation agency work alone, but transportation changes are essential as part of the 411

solutions. Appendix B, Guiding Themes, and context presented in Chapter 2 expand on this. 412

“Data show the need to direct prevention efforts to communities with 413 poverty rates higher than the state average as well as vulnerable and 414

marginalized populations, such as older adults, individuals with 415 disabilities, people of color, and youth. This will help U.S. improve 416 safety and public health, and decrease the burden on individuals, 417

communities, and the state’s economy.” — Target Zero 2019 418

419

Figure 1.5 — The Robert Wood Johnson Foundation created this graphic to illustrate the difference between 420 "equality"—everyone treated the same—and "equity"—recognizing and addressing differences to meet 421 individual needs. Used with permission. 422

Figure 1.6 lists an equity analysis developed for this plan to help planners and engineers identify 423

equity gaps in performance. Addressing equity helps address safety performance, health 424

disparities, connectivity, and partnerships. 425


Chapter 1 23

GOAL PERFORMANCE MEASURES EQUITY CHECKS

Networks: Connect comfortable and efficient walking and rolling networks so people can reach their destinations and other forms of transportation and have everyday access to physical activity.

Network completeness: Facility length, reductions in gaps (along and across the system) where facilities are recommended, access to jobs, goods/services and modal connections Network quality: Level of traffic stress

Do certain populations have access to fewer places or fewer miles reachable by high- comfort, low-stress facilities accessible to all abilities?

Safety: Eliminate deaths and serious. injuries of people walking and rolling.

Total number of people killed or seriously injured in driver crashes with pedestrians or bicyclists Lane miles with injury minimization speed limits.

Are certain populations at a higher risk for deaths and serious. injuries while walking or rolling?

Opportunity: Eliminate disparities in access to safe, healthy active transportation connections for people and communities most dependent on walking, bicycling and transit.

Network performance measures in communities of concern Intermodal access Greenhouse gas emissions avoided by walking/bicycling miles

Are we working with historically disadvantaged communities in ways that enable and empower them to identify their priorities in addressing active transportation disparities? Are we applying investments to address disparities? Are certain populations more subject to health disparities associated with transportation pollutants/emissions?


Chapter 1 24

GOAL PERFORMANCE MEASURES EQUITY CHECKS

Participation: Increase the percentage of everyday short trips made by walking or bicycling.

Percentage of trips by walking/bicycling Percentage of adults meeting physical activity recommendations Percentage of children walking/biking to school Ferry walk-on/bike trips Transit access by mode

Do certain populations make a smaller percentage of everyday short trips using active transportation? Do we understand why, and whether this is due to issues we can seek to address together?

Partnership: Collaborate and coordinate with local, regional, state, tribal and federal partners to complete and improve the network across boundaries.

Percentage of jurisdictions with an active transportation plan that includes measurable goals and prioritization or evaluation methodology Percentage of population covered by such plans Percentage of total lane miles covered by such plans National rankings: America’s Health, Bicycle- Friendly State, Safe Routes to School Report Card

Are we building the capacity for partners to participate effectively? Are we providing information and guidance for places from very rural to very urban?

Figure 1.6 — Goals associated with performance measures and equity checks to help determine whether 426 performance is improving, particularly where needs are higher. 427

MOVING FORWARD TOGETHER 428

Implementing this plan and building with its tools will enable WSDOT and partners to make 429

incremental progress toward a bold vision: A network that works as well for people walking 430

or rolling as it does for people using motor vehicles. 431

Washington state won’t get there overnight—and we won’t get there at all if we don’t begin. 432

The saying about planting trees applies equally well to building trails or closing gaps in a 433

network. “The best time to plant a tree (or build a trail or improve the network) is 20 years ago. 434

The second-best time is now.” Let us move forward together now, compass in hand. 435


Terminology 25

TERMS USED IN THIS PLAN 436

Accessibility: A measure of mobility; as technically calculated, total travel time between areas 437

weighted by the relative attractiveness of the destination. 438

ADA-accessible: Facilities that meet the requirements of the Americans with Disabilities Act, 439

federal legislation passed in 1990 that protects against discrimination based on disability. 440

Active transportation: Using a human-scale and often human-powered means of travel to get 441

from one place to another; includes walking, bicycling, using a mobility assistive device such as a 442

wheelchair or walker, using micromobility devices, and using electric-assist devices such as e-443

bikes and e-foot scooters. 444

Bicycling or Cycling: Includes use of various forms of bicycles and tricycles, both those 445

propelled solely by human power and electric-assisted bicycles/tricycles.8 446

Connectivity: A measure of how well facilities are linked together to form a convenient network 447

that facilitates everyday trip purposes. In general, this means that the facilities follow the most 448

direct path between origin and destination points. 449

Context: refers to the environmental, economic, and social features that influence livability and 450

travel characteristics. Context characteristics provide insight into the activities, functions, and 451

performance that can be influenced by the roadway design. Context also informs roadway 452

design, including the selection of design controls, such as target speed and modal priority, and 453

other design decisions. For more information, see Chapter 1102 of the WSDOT Design Manual. 454

E-bikes: Also known as pedal-assist or electric-assisted bicycles, e-bikes are defined in 455

Washington state law as Class 1, 2, or 3, depending on how much assistance they provide (RCW 456

46.04.169). 457

8 Washington state law defines bicycles as two-wheeled or three-wheeled devices (RCW

46.04.071). This plan is not intended to restrict the term “cycling” based on the number of

wheels on the device.

https://wsdot.wa.gov/Publications/Manuals/M22-01.htmhttps://app.leg.wa.gov/rcw/default.aspx?cite=46.04.071#:%7E:text=%22Bicycle%22%20means%20every%20device%20propelled,inches%20or%20more%20in%20diameter.https://app.leg.wa.gov/rcw/default.aspx?cite=46.04.071#:%7E:text=%22Bicycle%22%20means%20every%20device%20propelled,inches%20or%20more%20in%20diameter.


Terminology 26

Micromobility: Small wheeled devices that may have an electric motor. Includes skateboards, 458

foot scooters, hoverboards, and patented devices such as Solowheels and Segways. 459

Micromobility use is not yet tracked separately and typical data counters do not distinguish 460

between device types. Research on the use of these devices is so new that it isn’t included in the 461

discussion of benefits and other issues below; their use for transportation primarily emerged in 462

2018-2019. 463

Network: A system of links (roadway segments), nodes (intersections or crossings), and modal 464

connection points that describe a transportation system. 465

Pedestrian: As defined under Washington state law, “Any person afoot or using a wheelchair 466

(manual or motorized) or means of conveyance (other than a bicycle) propelled by human 467

power, such as skates or a skateboard” (RCW 46.04.400). 468

Rolling: Used throughout the plan as a term inclusive of people cycling, using wheelchairs and 469

other wheeled mobility assistance devices, and using micromobility devices. 470

Trails and shared-use paths: A public way constructed primarily for and open to people 471

walking, bicycling, or rolling (and in some locations, riding horses); does not include sidewalks. 472

For purposes of Washington state law, a trail/path can also include a widened highway shoulder 473

where that has been made part of a trails plan (RCW 47.30.005). 474

Trips: Agencies use the term “trip” to mean a single event where a person goes from an origin 475

to a destination. A trip may or may not include intermediate stops. Trips can be taken using any 476

transportation mode, including walking, cycling, public transportation, or private vehicle use, 477

among others. 478

Walking: Includes walking; running where that shows up in counts or survey data (such as run 479

commuters); and people with disabilities using assistive mobility devices. 480

Other technical terms used in this plan are defined where they first appear in the document, as 481

needed.482

https://apps.leg.wa.gov/rcw/default.aspx?cite=46.04.400https://app.leg.wa.gov/rcw/default.aspx?cite=47.30&full=true#47.30.005


Chapter 2 27

Chapter 2: Active transportation in Washington state 1

INTRODUCTION: INTEREST, OPPORTUNITIES, ISSUES 2

As WSDOT staff conducted extensive outreach across the state, both interest in increased active 3

transportation use and issues that create barriers to such use emerged. Public comments 4

reinforced findings in state and national data. While people are already walking and bicycling for 5

a variety of purposes, they said they want: 6

● Walking and biking to be safe from fatal/serious. injury crashes. 7

● Children to be able to walk, bike, and roll to school. 8

● Drivers to slow down where people walk and bike. 9

● To be able to cross the state highway walking or bicycling. 10

● More sidewalks, bike lanes and separated trails. 11

● Issues of transportation equity to be addressed. 12

The most common topics across all input channels were safety and the need for facilities. Safety 13

data for the state make it clear that the state cannot attain its Target Zero goal of zero deaths 14

from traffic without addressing pedestrian and bicyclist fatalities, which make up over 20 percent 15

of all traffic deaths. Past efforts have not succeeded in eliminating or even reducing the annual 16

number of traffic deaths and serious. injuries for people who walk and bike. In addition, given 17

patterns in the locations of serious. injury and fatal crashes, the state cannot attain its Target 18

Zero goals without addressing the disproportionate numbers of such crashes in places that are 19

home to higher percentages of lower-income households and Black, Indigenous and people of 20

color. The high percentage of deaths on roads with posted speeds of 30 mph or more (86 21

percent of all pedestrian and bicyclist fatalities 2010-2019) points to the importance of speed 22

management, one of the strategies discussed in Chapter 4. 23

WSDOT applies a variety of measures of active transportation use, none of which provide a 24

complete picture. This plan’s analysis, described in Chapter 3, examines the presence or absence 25

of adequate facilities that will make use more inviting and address critical safety issues. Where 26


Chapter 2 28

investment in such facilities has been measured, as with Safe Routes to School projects, results 27

show increased walking and bicycling rates and reductions in serious. crashes. 28

Active transportation provides a number of benefits described in this chapter. Increasing walking 29

and bicycling in the state contributes both to transportation goals and other goals such as 30

economic vitality and individual and community health. 31

32

Figure 2.1 — An example of the Level of Traffic Stress analysis shared with the public in an online open 33 house and presentations. Chapter 3 describes this methodology in detail. 34

WHAT PEOPLE IN WASHINGTON SAY ABOUT ACTIVE TRANSPORTATION 35

WSDOT staff estimate that engagement efforts reached upwards of 80,000 people across the 36

state through a variety of approaches. This chapter provides a brief summary of what WSDOT 37

heard, with more details on the outreach activities in Appendix C, Outreach and Engagement. 38

The goals and priorities outlined in this plan are based on what Washingtonians told the agency, 39

which reinforced findings from state and national research. Repeatedly, adults, youth, and 40

children; people of different racial groups and economic status; and people in every part of the 41

state told the project team they want safe places to walk, bike, and roll. They want to be able to 42

get across and along state highways to get to their destinations. Below is a list of themes people 43

expressed most often in order of their frequency in questionnaire responses and open-ended 44

comments: 45

1. Safety and eliminating fatal/serious. injury crashes need to be priorities. 46

2. Make it easier for children to be able to walk, bike, and roll to school. 47


Chapter 2 29

3. Drivers are going too fast on the state highway where we need/want to walk and bike. 48

4. We need more and safer places to get across the state highway. 49

5. We need/want more sidewalks and separated trails. Fill the gaps in existing sidewalks, 50

bike lanes, shared-use paths, and trails. 51

6. Inequitable availability and access need to be addressed; some places have far better 52

facilities than others. 53

7. Existing places for walking, bicycling, or riding small devices need maintenance. 54

8. We need better connections to transit service. 55

“Essentially every intersection involving a state highway is stressful to 56 use because they have been designed for auto traffic. This seems like a 57

no-brainer.” — Online open house comment on the usefulness of 58 analyzing level of traffic stress 59

Robust community engagement for this plan centered around three milestones. The first round 60

of engagement in early/mid 2019 included informing a broad spectrum of organizations that 61

the process was getting under way and asking them to spread the word, as well as identify 62

issues and priorities. Engagement in fall 2019 included an online open house, webinars, and 63

customized outreach to people who do not typically voice their opinions to government. The 64

final phase includes a review of the draft plan by the public in winter 2020-21, after which the 65

plan document will be finalized. 66

The outreach efforts revolved around the core concepts of: 67

● Engaging early with a stakeholder committee to advise WSDOT on outreach and plan 68

development. 69

● Listening. 70

● Inviting people to engage using a variety of electronic and in-person options. 71

● Involving the Cooper Jones Active Transportation Safety Council in discussion of core 72

concepts and goals. 73

● Using public input to direct, build, and refine the plan. 74

● Connecting with partners at all levels of government. 75


Chapter 2 30

● Keeping WSDOT employees informed, with opportunities to engage in developing an 76

actionable work plan. 77

● Getting the word out about research-based best practices in active transportation and 78

the purpose of the plan. 79

80

81

Figure 2.1 — An example of the flyers distributed by WSDOT directly and through partnering organizations 82 to invite people to take a questionnaire and sign up for e-mail newsletters. 83

84


Chapter 2 31

85

Figure 2.2 — WSDOT staff used email, social media, web pages, questionnaires, and presentations to reach 86 people across the state 87

The purpose of WSDOT outreach was to understand community priorities and goals for 88 Washington’s multimodal and multi-functional transportation system. Specifically, this effort was 89 about giving Washington residents the chance to say: 90

● What active transportation in their communities is like now. 91

● What changes they need to be able to walk, bike, or roll for transportation. 92

● Where the most important pedestrian, bicyclist, and wheeled mobility connections are 93

and should be in the future. 94


Chapter 2 32

Based on the total number of social media impressions, email distribution, questionnaire 95

responses, event participation, and e-news sign-ups, WSDOT estimates that 80,000 people or 96

more were made aware of the planning process and/or participated in some way.9 97

Throughout the planning efforts, a statewide Active Transportation Plan Stakeholder Committee 98

provided input and guidance. This group included members of the public, nonprofits, staff from 99

key state agencies, the governor’s office, metropolitan and regional transportation planning 100

organizations, and tribal governments (list in Appendix A, Acknowledgements). The stakeholder 101

committee met regularly to give a public and a statewide perspective to the work. WSDOT staff 102

also held in-depth discussions with the Cooper Jones Active Transportation Safety Council on 103

the analytic methods, goals, and performance measures. Direction from the stakeholder 104

committee and the results of the outreach provided input for the planning process, assessment, 105

performance measures, goals, policy topics, and action steps outlined throughout this plan. 106

BENEFITS OF BICYCLING AND WALKING 107

This section provides a high-level summary of the ways that walking and bicycling provide 108

health, environmental and financial benefits for the individual who walks or bikes and for the 109

community. Some of the community benefits result when people use walking and biking in 110

place of motor vehicle travel. 111

9 This estimate incorporates the assumption that some of the social media impressions duplicate

other forms of participation. WSDOT has no way of identifying how many people participated in

more than one opportunity or how many of the organizations on the outreach contact list

forwarded emails to reach more than the numbers represented here. Trackable points of contact

and impressions total


Chapter 2 33

Health benefits 112

Study after study finds that walking and bicycling can improve physical and mental health.10 113

These benefits do not require becoming a super-athlete; the Centers for Disease Control and 114

Prevention reports that any increase in physical activity can provide health benefits.11 Bicycling 115

with an electric-assist bicycle has also been proven to provide physical and health benefits.12 116

10 Washington state Recreation and Conservation Office, 2019. Economic and Health Benefits of

Walking, Hiking and Bicycling on Recreational Trails in Washington state, Health Benefits of

Walking. America Walks, 2017. Health benefits of cycling: A systematic review. Scandinavian

Journal of Medicine and Science in Sports 21(4):496-509 · April 2011, P. Oja et al. DOI:

10.1111/j.1600-0838.2011.01299.x. Association between active commuting and incident

cardiovascular disease, cancer, and mortality: prospective cohort study. British Medical Journal.

2017; 357 doi: https://doi.org/10.1136/bmj.j1456

11 CDC. 2018. Physical Activity Guidelines for Americans

https://health.gov/sites/default/files/2019-09/Physical_Activity_Guidelines_2nd_edition.pdf

12 Health benefits of electrically-assisted cycling: a systematic review. Jessica E. Bourne et al.,

2018. International Journal of Behavioral Nutrition and Physical Activity 15.

https://doi.org/10.1186/s12966-018-0751-8

https://www.americantrails.org/images/documents/HikingBikingExecSummary.pdfhttps://www.americantrails.org/images/documents/HikingBikingExecSummary.pdfhttp://americawalks.org/%20learning-center/benefits-of-walking-2/health/http://americawalks.org/%20learning-center/benefits-of-walking-2/health/https://www.researchgate.net/publication/51054095_Health_benefits_of_cycling_A_systematic_reviewhttps://www.bmj.com/content/357/bmj.j1456https://www.bmj.com/content/357/bmj.j1456https://health.gov/sites/default/files/2019-09/Physical_Activity_Guidelines_2nd_edition.pdfhttps://ijbnpa.biomedcentral.com/articles/10.1186/s12966-018-0751-8


Chapter 2 34

117

Figure 2.3 —Active transportation provides options for those who have given up driving, choose not to drive, 118 or cannot drive. Photo by Louise McGrody, courtesy of Washington Bikes. 119

Personal health benefits translate into cost savings for society when they reduce the high costs 120

of preventable chronic diseases. The lists below show the health benefits from regular physical 121

activity, such as walking and biking. 122

CHILDREN AND ADOLESCENTS 123

● Cardiorespiratory fitness. 124

● Muscular strength. 125

● Stronger bones. 126

● Improved powers of concentration.13 127

● Enhanced social skills.14 128

ADULTS 129

● Lower risk of early death. 130

13 Vinther, Dann. 2012. Children who walk to school concentrate better. ScienceNordic.

14 Herrador-Colmenero, M., et al., 2017 – Children who commute to school unaccompanied have

greater autonomy and perception of safety, ACTA Paediatrica.

https://sciencenordic.com/children-and-adolescents-denmark-exercise/children-who-walk-to-school-concentrate-better/1379550https://onlinelibrary.wiley.com/doi/abs/10.1111/apa.14047?systemMessage=Wiley+Online+Library+usage+report+download+page+will+be+unavailable+on+Friday+24th+November+2017+at+21%3A00+EST+%2F+02.00+GMT+%2F+10%3A00+SGT+%28Saturday+25th+Nov+for+SGT+https://onlinelibrary.wiley.com/doi/abs/10.1111/apa.14047?systemMessage=Wiley+Online+Library+usage+report+download+page+will+be+unavailable+on+Friday+24th+November+2017+at+21%3A00+EST+%2F+02.00+GMT+%2F+10%3A00+SGT+%28Saturday+25th+Nov+for+SGT+


Chapter 2 35

● Lower risk of heart disease and stroke. 131

● Lower risk of high blood pressure and adverse blood lipid profile. 132

● Lower risk of type 2 diabetes. 133

● Lower risk of colon and breast cancer. 134

● Lower risk of metabolic syndrome. 135

● Weight management. 136

● Cardiorespiratory fitness. 137

● Muscular strength. 138

● Lower risk of arthritis, asthma, and a host of other conditions. 139

● Prevention of falls. 140

● Reduced depression. 141

● Improved sleep. 142

● Better cognitive function (for older adults).15 143

Although most people do not think of it as a health factor, the transportation system has major 144

effects on the risk of disease and injury. In essence, transportation policy is health policy. A study 145

of walkability and health outcomes in King County found that walkable neighborhoods result in 146

more walking, improved health, and lower emission of pollutants.16 This relationship between 147

having good places to walk and more walking as a result is why the Centers for Disease Control 148

15 Step It Up! The Surgeon General’s Call to Action to Promote Walking and Walkable

Communities, U.S. Department of Health and Human Services, 2015.

16 Frank, L., et al., 2006 - Many pathways from land use to health: Associations between

neighborhood walkability and active transportation, body mass index, and air quality, Journal of

the American Planning Association, 72, 75-8

https://bikeleague.org/sites/default/files/Benchmarking_Report-Make_Your_Case-Healthy_Communities.pdfhttps://bikeleague.org/sites/default/files/Benchmarking_Report-Make_Your_Case-Healthy_Communities.pdfhttps://trid.trb.org/view.aspx?id=778317https://trid.trb.org/view.aspx?id=778317


Chapter 2 36

and Prevention recommend changes to the transportation system to make it easy and safe to 149

get physical activity as a part of everyday routines.17 150

“I am very supportive of this idea (level of traffic stress analysis). By 151 and large, while driving might be stressful, it generally does not keep 152

people from doing it. In comparison, people are more often 153 discouraged from using active modes due to stress. This affects 154

personal outcomes such as health (from inactivity) and economics.” 155 — Online open house comment 156

Health disparities affect Washingtonians in some places and from certain demographic groups 157

more heavily.18 As discussed below under Equity in Transportation, availability of the facilities for 158

safe biking and walking also vary by neighborhood. Residents of walkable communities are 159

twice as likely to meet physical activity guidelines compared to those who do not live in 160

walkable neighborhoods. The lack of opportunities for everyday physical activity deepens the 161

inequities for both health and transportation. 162

When bicycling or walking replace driving trips, it reduces vehicle-related air and water 163

pollution. This offers health benefits to everyone, especially people with asthma and other 164

17 Community Prevention Services Task Force (CPSTF), “Physical Activity: Built Environment

Approaches Combining Transportation System Interventions with Land Use and Environmental

Design,” The Community Guide.

18 Washington Environmental Health Disparities Map: Comparing environmental health risk

factors across communities. 2019. University of Washington Department of Environmental &

Occupational Health Sciences.

https://deohs.washington.edu/sites/default/files/images/Washington_Environmental_Health_Dis

parities_Map.pdf

https://www.thecommunityguide.org/findings/physical-activity-built-environment-approacheshttps://www.thecommunityguide.org/findings/physical-activity-built-environment-approacheshttps://www.thecommunityguide.org/findings/physical-activity-built-environment-approacheshttps://deohs.washington.edu/sites/default/files/images/Washington_Environmental_Health_Disparities_Map.pdfhttps://deohs.washington.edu/sites/default/files/images/Washington_Environmental_Health_Disparities_Map.pdf


Chapter 2 37

respiratory conditions and those living closest to major roadways.19 A final health benefit stems 165

from this switch: reductions in all crashes, including the most serious. ones, due to fewer vehicle 166

miles saves lives.20 167

Environmental benefits 168

The switch from a car or truck to walking or biking results in benefits to the environment. One of 169

the most significant is reduced pollution and greenhouse gas emissions. In 2017, motor vehicles, 170

boats, planes, and trains caused the biggest single share of the greenhouse gases in 171

Washington state (44.6 percent). Personal cars and trucks made up over half of that.21 A typical 172

passenger vehicle emits about 4.6 metric tons of carbon dioxide per year.22 Particles shed from 173

vehicle tires affect water quality for our state’s fisheries and ecosystems, regardless of whether 174

the vehicle runs on electricity, gas or diesel.23 Every motor vehicle trip replaced with a walk or 175

bicycle trip brings down these pollutant numbers.24 176

Figure 2.5 shows a summary of the estimated 2015 emissions (CO2) diverted from vehicles due 177

to bicycle miles traveled (BMT) and pedestrian miles traveled (PMT). The results show an 178

19 Friedman, M., et al., 2001. Impact of Changes in Transportation and Commuting Behaviors

During the 1996 Summer Olympic Games in Atlanta on Air Quality and Childhood Asthma,

Journal of the American Medical Association, 285(7):897

20 The Highway Safety Manual published by AASHTO lists reductions in vehicle miles traveled as

a proven safety countermeasure.

21 Washington state Department of Ecology, 2019. 2017 greenhouse gas data.

22 EPA. N.d. Greenhouse Gas Emissions from a Typical Passenger Vehicle.

23 Root, Tik. 2019. Tires: The plastic polluter you never thought about. National Geographic.

Cabotaje, Angela. 2020. What Are Microplastics and Why Are They a Problem?. UW Medicine.

24 European Cyclists’ Federation, 2011. Cycle More Often 2 Cool Down the Planet! Quantifying

CO savings of cycling.

https://jamanetwork.com/journals/jama/fullarticle/193572https://jamanetwork.com/journals/jama/fullarticle/193572https://jamanetwork.com/journals/jama/fullarticle/193572http://www.highwaysafetymanual.org/Pages/default.aspxhttp://www.highwaysafetymanual.org/Pages/default.aspxhttps://ecology.wa.gov/Air-Climate/Climate-change/Greenhouse-gases/2017-greenhouse-gas-datahttps://www.epa.gov/greenvehicles/greenhouse-gas-emissions-typical-passenger-vehiclehttps://www.epa.gov/greenvehicles/greenhouse-gas-emissions-typical-passenger-vehiclehttps://www.nationalgeographic.com/environment/2019/09/tires-unseen-plastic-polluter/https://www.nationalgeographic.com/environment/2019/09/tires-unseen-plastic-polluter/https://rightasrain.uwmedicine.org/well/health/microplasticshttps://rightasrain.uwmedicine.org/well/health/microplasticshttps://ecf.com/sites/ecf.com/files/ECF_CO2_WEB.pdfhttps://ecf.com/sites/ecf.com/files/ECF_CO2_WEB.pdfhttps://ecf.com/sites/ecf.com/files/ECF_CO2_WEB.pdf


Chapter 2 38

estimated 0.08 million metric tons (MMT) avoided due to bicycle travel and 0.34 MMT avoided 179

due to pedestrian travel. Combined, a total of 0.42 MMT of CO2 was avoided. A direct offset of 180

one active transportation mile for one vehicle mile was assumed. In 2015, an estimated 0.4 181

percent of total emissions were avoided by bicycling, while 1.6 percent was diverted by walking. 182

Therefore, the baseline measure for the state avoided CO2 due to travel by active modes is 0.42 183

MMT or 2.0 percent of the 21.42 MMT estimated CO2 produced by vehicles annually. The goal is 184

to increase that amount of avoided emissions to 1.05 MMT annually. 185

VARIABLE BICYCLE TRAVEL PEDESTRIAN

TRAVEL TOTAL ACTIVE

TRANSPORTATION VEHICLE TRAVEL

Miles Traveled (million miles) 218 938 1,156 59,653

25

Emissions (million metric tons (MMT)) 0.08 0.34 0.42 21.42

26

Emissions (% of total) 0.4% 1.6% 2.0% 98.0%

Figure 2.5 — Summary of estimated 2015 emissions (CO2) avoided for VMT due to bicycle and pedestrian 186 travel assuming a direct offset. Sources: Air Quality & Climate, WSDOT, 2019; Office of Strategic Assessment 187 and Performance Analysis (OSAPA), WSDOT, 2018; PSRC MOVES 188

Reducing vehicle miles driven by switching to active transportation provides safety and health 189

benefits that are larger than a switch to lower-emission motor vehicles. For example, electric 190

vehicles provide emissions benefits over internal-combustion engines, yet still incur shedding of 191

tire particles that affect water quality and the potential for a crash occurring.27 A shift towards 192

25 WSDOT. 2015. Annual Mileage & Travel Information.

26 Washington State Department of Ecology. 2018. Washington State Greenhouse Gas Emissions

Inventory: 1990-2015.

27 J. Woodcock et al., 2009. Public health benefits of strategies to reduce greenhouse-gas

emissions: Urban land transport. The Lancet. DOI: https://doi.org/10.1016/S0140-

6736(09)61714-1

https://www.wsdot.wa.gov/mapsdata/travel/hpms/annualmileage.htmhttps://www.wsdot.wa.gov/mapsdata/travel/hpms/annualmileage.htmhttps://fortress.wa.gov/ecy/publications/documents/1802043.pdfhttps://fortress.wa.gov/ecy/publications/documents/1802043.pdfhttps://www.thelancet.com/journals/lancet/article/PIIS0140-6736(09)61714-1/fulltexthttps://www.thelancet.com/journals/lancet/article/PIIS0140-6736(09)61714-1/fulltexthttps://www.thelancet.com/journals/lancet/article/PIIS0140-6736(09)61714-1/fulltext


Chapter 2 39

more active transportation will reduce the state’s dependence on fossil fuels while benefiting air 193

and water quality and the state’s ecosystems. 194

Economic benefits 195

Bicycling programs and active transportation facilities such as sidewalks have been shown to 196

deliver economic benefit to society, including increased retail sales and property values. This 197

economic return provides tax revenues to local and state government.28 In addition to drawing 198

business activity, walkable places support workforce recruitment and retention in smaller towns 199

as well as in larger cities.29 200

Outdoor recreation is big business in Washington state, supporting more direct and indirect 201

employment than aerospace. Active transportation provides an essential foundation for this 202

economic activity; bicycle riders spend a total of over $3.1 billion annually.30 As the fourth most 203

frequently chosen recreational activity, bicycling represents a substantial number of people 204

getting outdoors and their spending generates economic activity across the state. Bike tourists 205

spend more on average for each day of travel than automobile travelers.31 Downtown 206

associations and tourism destination organizations promote walkable, inviting business districts 207

28 Benchmarking Report on BIcycling and Walking in the United States. The League of American

Bicyclists, 2018.

29 How sustainable cities can drive business growth. Hallie Kennan and Chris Busch. 2016.

GreenBiz. How Small Towns and Cities Can Use Local Assets to Rebuild their Economies: Lessons

from Successful Places. EPA, 2015. Addressing the coming workforce squeeze. 2015. Center for

Rural Policy and Development.

30 Outdoor recreation 264,000 jobs; aerospace 237,000 jobs. Recreation and Conservation Office.

2020. Economic Analysis of Outdoor Recreation in Washington state, 2020 update.

31 New Economic Analysis: Bicycling Means Business in Washington, Washington Bikes, 2015.

https://data.bikeleague.org/https://www.greenbiz.com/article/how-sustainable-cities-can-drive-business-growthhttps://www.epa.gov/sites/production/files/2015-05/documents/competitive_advantage_051215_508_final.pdfhttps://www.epa.gov/sites/production/files/2015-05/documents/competitive_advantage_051215_508_final.pdfhttps://www.ruralmn.org/addressing-the-coming-workforce-squeeze/https://rco.wa.gov/wp-content/uploads/2020/07/EconomicReportOutdoorRecreation2020.pdfhttp://wabikes.org/2015/01/08/bicycling-means-business-in-wa/


Chapter 2 40

that attract people to shop, dine, and spend the night, making active transportation investments 208

a support for every type of traveler. 209

The economic benefits of walking and biking return to individual people as well as to society. 210

The reality for many people is that they cannot afford a reliable working vehicle. This makes 211

access to active and public transportation essential to get to work, education, and services. 212

A new technology is helping some people: Electric-assist bicycles cost less than a typical 213

vehicle32 and provide a boost to get up hills and cover more miles. They make it easier to use a 214

bicycle for everyday trips, including hauling children or groceries, for people who might not 215

have considered biking in the past. A national study of electric-bike owners found that 25 216

percent of respondents had physical limitations that made a regular bicycle too difficult to use, 217

and owners ride farther than they would have on a non-assisted bike.33 Electric-assist bikes 218

offered through bikeshare systems aren’t available everywhere in the state, but where bikeshare 219

exists it can make these bikes available without the up-front cost of direct purchase. 220

People who walk and bicycle save money on automobile fuel, parking, and vehicle maintenance, 221

and potentially on insurance as they reduce miles driven. According to the American Automobile 222

Association, the annual cost of owning a car and driving 15,000 miles a year is over $9,200.34 223

Investments in active transportation facilities costs much less to build and maintain than 224

increasing road space for people moving in cars, SUVs, and pickup trucks and creates more 225

32 An electric-assist bicycle costs roughly 1/10 the price of the lowest-cost new electric vehicle as

of November 2020 ($3,000 vs $30,000).

33 MacArthur, John, and Christopher Cherry. 2018. A North American Survey of Electric Bicycle

Owners. Transportation Research and Education Center, Portland State University.

34 AAA. 2019. Your Driving Costs. Sept. 12, 2019, average annual cost of vehicle ownership

$9,282.

https://trec.pdx.edu/research/project/1041https://trec.pdx.edu/research/project/1041https://newsroom.aaa.com/auto/your-driving-costs/


Chapter 2 41

jobs.35 According to a study requested by the American Association of State Highway and 226

Transportation Officials, active transportation projects create more jobs than any other type of 227

transportation infrastructure, at a return of 17:1.36 Smaller than a major project, such as a 228

freeway exchange, these active transportation projects may also offer greater potential for 229

smaller firms to win bids, expanding opportunities for disadvantaged business enterprises. 230

For the approximate cost of one Seattle-area freeway interchange, 231 approximately 300 miles of trail could be constructed.37 232

Mobility, accessibility, and congestion relief benefits 233

Space-efficient active transportation connectivity investments that close gaps and encourage 234

mode shift make use of existing facilities to leverage past investments. A spectrum of “quick-235

build” design options enable the creation of bike lanes with varying degrees of separation.38 236

Supporting mode shift provides long-lasting benefits in managing highway capacity. Increases 237

in highway capacity lead to increased driving, something known as “induced demand.” In other 238

35 For comparison, cost estimates in Chapter 4 show that for the approximate cost of one Seattle

freeway interchange ~300 miles of trail could be constructed. Chapter 4 and Appendix F, Cost

Estimation Background, provide more specific information on methodology and cost

calculations.

36 Dowell, Paula, and Lisa Petraglia. NCHRP 08-36, Task 103. 2012. Mining Recovery Act Data for

Opportunities to Improve the State of Practice for Overall Economic Impact Analysis of

Transportation Investments.

37 This is based on WSDOT‘s planning level cost estimate for an interchange that is fully

directional for all GP and HOV movements. The trail estimate assumes a cost of $315 million for

300 miles.

38 Andersen, Michael. No, Protected Bike Lanes Do Not Need to Cost $1 Million Per Mile. People

for Bikes.

http://onlinepubs.trb.org/onlinepubs/nchrp/docs/NCHRP08-36(103)_FR.pdfhttp://onlinepubs.trb.org/onlinepubs/nchrp/docs/NCHRP08-36(103)_FR.pdfhttp://onlinepubs.trb.org/onlinepubs/nchrp/docs/NCHRP08-36(103)_FR.pdfhttps://peopleforbike

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