VI-3. PEDESTRIAN SYSTEM Every trip -- whether by automobile, bus, bike, or foot -- begins and ends with . Pedestrian access is an essential part of Santa Cruz's transportation system. Encouraging people to walk requires public and private investment in pedestrian infrastructure and care in the urban design of development.

To encourage people to choose walking, a pedestrian system needs offer the fundamental conditions to create the desire to walk: proximity and attractiveness of destinations, directness of pedestrian access, continuity, safe crossings, security, comfort, visual interest and amenities.

This section describes how to make Santa Cruz a more accessible and walkable . It presents the MTS vision for enhancing pedestrian transportation and provides general guidelines and principles for improving pedestrian facilities and connections. It concludes with short and long-term recommendations.

MTS VISION The MTS vision for Santa Cruz's pedestrian system is to: 1. Enhance the convenience, safety and attractiveness of walking 2. Complete the pedestrian network 3. Support walking as the fundamental connection to all travel modes. Walking is an opportunity to offer all members of the community a free and independent travel choice, especially for those members who do not drive, such as seniors, children, the disabled and lower income residents.

MTS Goals The MTS goals for Santa Cruz's pedestrian system are to:

G Provide multiple transportation modes thereby creating a flexible and adaptive transportation system throughout the City of Santa Cruz

G Close all "gaps" in the pedestrian network and connect all major destinations and activity centers

G Ensure that the City's diverse user groups have access to a sustainable and efficient mode of transportation

G Create a system that is "scaleable" and responds to changing community needs, and provide flexibility and variety in the City's transportation network

G Adopt design standards for the pedestrian system to assure a high level of user amenities, safety and quality

Master Transportation Study G VI-3. Pedestrian System, page 85 G Create a transportation network that restores and maintains the quality of life and the quality of the environment in the City of Santa Cruz

G Focus on making transportation modes other than the private auto convenient

G Ensure residents and visitors to the City of Santa Cruz are safe and comfortable on all modes of transportation

G Provide optimal safety for vulnerable populations (e.g., pedestrians, cyclists, children, elderly, disabled) A key outcome for the pedestrian network is to serve all types of travelers. Ranging from the commuter walking to work on arterial , to students traveling to and from school, or people walking to neighborhood shopping centers, all people seek conven- ience, safety and comfort in a pleasant walking environment.

EXISTING POLICY "Develop and promote pedestrian travel as a viable transportation mode by developing and maintaining a safe, comprehensive, convenient, accessible and aesthetically pleasing pedestrian system." -- Santa Cruz General Plan

The 1994 City of Santa Cruz General Plan contains pedestrian goals, policies, programs and projects. The General Plan and the MTS mutually support each other to promote pedestrian travel.

WORKSHOP AND FESTIVAL COMMENTS The public provided comments on enhancing pedestrian paths and connections in the MTS workshops and Mobility Festivals. The following summarize of the public's key comments:

Pedestrian Priority Areas

G like any improvements that encourage walking

G need more pedestrian amenities throughout Santa Cruz

G need safety improvements

G need more frequent repair Pedestrian Area Connections

G improve crossings and intersection safety

G need more pedestrian scaled lighting

G need more trees

Master Transportation Study G VI-3. Pedestrian System, page 86 Key Pedestrian Corridors

G need more pedestrian amenities

G construct bridge over San Lorenzo River at 1

G need circle Car Free Pedestrian Zones

G test idea initially using special events

G consider permanent closures of certain streets

G concern over the impact on business and desire for their support

PRIORITIES FOR THE PEDESTRIAN SYSTEM Implementation of a pedestrian system in Santa Cruz shall emphasize the following priorities: 1. Complete and maintain the City sidewalk system 2. Improve safety for specific problem areas 3. Adopt pedestrian friendly street design 4. Create pedestrian priority areas 5. Enhance key pedestrian connections 6. Create special pedestrian-only zones 7. Initiate programs to encourage walking

ELEMENTS OF PEDESTRIAN-ORIENTED DESIGN 1. Complete & Maintain the City's Sidewalk System Completion of the City's sidewalk system is fundamental to providing a walkable community. The 1999 Santa Cruz Survey provides significant evidence regarding resident walking behavior. The most favorable responses to walking are from the neighborhoods in the City with a better sidewalk system. Lack of was noted as a problem at many of the public meetings held to discuss the City Transportation Study, as shown in Figure 5.

The City maintains about 135 miles of streets. To insure safe access to all destinations it is desirable to have sidewalks on both sides of the street. The completed sidewalk system would amount to 270 miles of sidewalks. Approximately 50 miles of sidewalk is missing from this system.

Master Transportation Study G VI-3. Pedestrian System, page 87 Predominant problem areas are the Upper Eastside and the Westlake area, with large continuous sidewalk links missing. Areas such as the Circles Area and the Seabright Area have many small gaps.

Maintaining the sidewalk system is also a priority. A sample survey of sidewalks done in 2001 indicated that an estimated 50% of the City's existing sidewalk system is in need of repair. In combination with closing the sidewalk gaps, an estimate to complete and improve the sidewalk network approaches $25 million. Several approaches to completing these gaps are available:

G Identify problem sidewalks and send notices to the owners about the need for repair.

G Send notices to all owners of parcels with missing sidewalk about the restrictions and requirements for sidewalk.

G Record notices to provide an incentive for repair prior to sale.

G Develop a grant or other funding sources to assist owners in the maintenance and installation of sidewalks.

2. Pedestrian Safety Particular locations of greater-than-average pedestrian activity can benefit from site- specific design improvements (as described below and in the Livable Streets Section). High pedestrian collision locations should be analyzed for safety improvements. Example "hot spot" strategies and locations include:

G Providing more frequent protected crossings by adding signals on busy streets such as Ocean, Mission, Soquel, and Water Streets

G Implementing pedestrian friendly design treatments and signalized at the East Cliff/Hiawatha intersection

G Implementing pedestrian friendly design treatments at the East Cliff/Jessie Street intersection

G Implementing pedestrian friendly design treatments at the Soquel-Water Morrissey Intersection

Master Transportation Study G VI-3. Pedestrian System, page 88 Master Transportation Study G VI-3. Pedestrian System, page 89 3. Pedestrian-Oriented Design Pedestrian-oriented design is the act of creating safe and attractive places and connections between places. When we walk along a to the beach or stroll downtown window-shopping, whether we choose to walk is based on how our environment supports our needs for walking.

Assuming destinations are located within reasonable proximity, people prefer to walk through places where it is convenient, safe, attractive, and visually interesting. Good pedestrian-oriented design in residential areas fosters social interaction. Great street design in commercial areas creates vibrancy, identity and supports economic activity.

General Design Considerations Pedestrian-oriented design should adhere to the fundamental principles of directness, continuity, safe crossings, security, comfort, visual interest and amenities. It encompass- es both the public right-of-way and private development. Pedestrian oriented design is comprised of street and urban design standards, guidelines and values that result in truly desirable places to walk. Design considerations below cover:

G Intersection design

G Sidewalks and pedestrian paths

G

G Streetscape plans

G Crossings Coordinate the following design guidelines with the street design guidelines found in the Livable Streets Section.

Intersection Design Develop a prototypical pedestrian-oriented intersection design that emphasizes the following characteristics:

G Increase visibility of pedestrians using high visibility ladder style marked crosswalks and illumination on all corners

G Ensure good sight distance for motorists and pedestrians by trimming vegetation, removing sight obstructions at corners, and restricting parking close to intersections

G Provide appropriate crossing times at signalized intersections with timing set to the walking speed of predominant users (e.g. children and elderly travel at 3 feet per second)

G Redesign intersection signal timing to give greater consideration to pedestrians; this can be done by giving more time to pedestrian delay Master Transportation Study G VI-3. Pedestrian System, page 90 G Install curb extensions to shorten crossing distance and increase pedestrian visibility, while avoiding interference with bike lanes and bus movements

G Provide pedestrian signal heads, easily accessible and consistent pushbuttons; locate pushbuttons on medians on long crossings and countdown pedestrian signals

G Decrease curb return radii to 10 feet to shorten crossing distance on residential streets and 15-25 feet on transit and commercial and industrial serving streets

G Add texture or color changes in crosswalk pavement, especially at neighborhood entries to make more visible

G Eliminate high speed and free-flow right turns; replace with conventional corners or with pedestrian friendly slip lane design

G Minimize pedestrian/vehicle conflicts through appropriate signal phasing (e.g. avoid conflicting permissive vehicle turns on high pedestrian volume intersec- tions)

G Restrict right turns on red at high pedestrian volume locations, such as schools

G Set stop limit lines back 3-4 feet from crosswalk at controlled intersections and 20 feet back at mid-block and other uncontrolled locations to increase driver visibility of pedestrians

G Provide a median refuge at both sides of crosswalk at crossings greater than two lanes wide

G Give preference to curb ramps that provide two directional ramps instead of a diagonal ramp at the corner of intersections. Design ramps with side curbs so vehicles cannot easily drive on the sidewalk while turning the corner

G Provide a painted crosswalk on all legs of a signalized intersection

Sidewalks and Pedestrian Paths G Wherever possible require that new sidewalks adopt a parkway design to maintain a level walking surface on driveway approaches and to provide space for tree planting

G Monitor pedestrian facilities to identify and remove obstructions and barriers to walking, such as street signs and lampposts; the objective is a 5 foot clear area

G Ensure streets and pedestrian paths provide clear lines of sight to increase feeling of security, avoiding vegetation, recesses, and blind areas that screen lines of sight

Master Transportation Study G VI-3. Pedestrian System, page 91 Traffic Calming G Develop area-wide traffic calming plans to improve pedestrian safety and comfort, and reduce speeding and cut-through traffic

G Develop traffic calming plans for specific street segments, commercial areas, and internal to Activity Centers

Streetscape Plans Develop streetscape plans to improve the safety, comfort and attractiveness of streets to encourage walking. Plans should:

G Include landscaping, textured paving, open spaces and plazas, pedestrian-scale lighting and urban design elements, amenities and screening of unattractive walls and uses

G Preserve planting strips along sidewalks

G Review and refine building design standards to provide pedestrian-oriented scale, street orientation, pedestrian amenities, such as seating and protection from weather

G Design streets for pedestrian inhabitation by orienting balconies, terraces, and yards to the sidewalk, making buildings transparent to the street with large win- dows, use of canopies and awnings to draw people closer to buildings, and adding pedestrian scale signage

G Augment general street illumination with pedestrian-scaled lighting highlighting entrances, paths, and intersections. Decrease glare associated with high intensity lighting fixtures, and provide indirect lighting of sidewalks. Avoid over-illu- mination of pedestrian areas that create shadows and pedestrian insecurity. Illumination levels of .2-foot candles are desired minimums in residential areas and should increase to .9-foot candles in commercial and industrial areas. Crosswalk illumination should be .5-foot candles in residential areas and 2.0-foot candles on arterials.

Crossings G Develop citywide street crossing improvement guidelines that: include crosswalks, illumination, curb extensions, median refuges, corner sidewalk widening, signs, signal control, signal heads, and landscaping.

4. Pedestrian Priority Areas & Activity Centers Major Activity Centers Urban design analysis of the existing physical structure of the City identified six major activity centers and several activity areas throughout the City. The analysis considered

Master Transportation Study G VI-3. Pedestrian System, page 92 the location, intensity and types of uses, the street and block pattern, and the natural features. The six major activity centers are:

G The Downtown

G The Beach

G UCSC

G Harvey West

G Mission Street Commercial Area

G Soquel Avenue Eastside Business District. The centers form the heart of Santa Cruz. They are the hub of the City's economic, educational, recreational, cultural and social life. Each major activity center has a distinct focus, identity, function and sense of place.

The six activity centers are a high priority for implementing pedestrian oriented design to enhance internal circulation as well as access to the centers from the surrounding neighborhoods. Prioritizing pedestrian-oriented design for these areas will not only draw people to these centers, it will encourage them to stay longer and combine trip purpos- es, reducing auto dependence.

The key recommendation is to adopt major activity center "pedestrian priority areas" -- based on the 1/4- to 1/2-mile walking distance of neighborhoods to activity centers -- with a focus on priority pedestrian building frontages and streetscape improvements to promote walkable communities and mixed-use development.

Figure 6 illustrates pedestrian priority street frontages for Mission Street and the Westside Industrial area, Figure 7 is for Harvey West and River Street, Figure 8 is for Soquel Avenue and Ocean Street and Figure 9 is for the Downtown and Beach.

The MTS recommends the following to enhance the pedestrian environment in Major Activity Centers:

G Complete the sidewalk and access ramp system

G Focus on the proposed sidewalk assistance program

G Develop long-term streetscape plans that include wider sidewalks, street trees, pedestrian lighting, street furniture, and other pedestrian amenities

G Remove pedestrian barriers to walking and improving sidewalk maintenance

G Provide pedestrian-activated signals, multi-modal intersection design and crossings

G Add traffic signals on busy streets to facilitate crossing such as Ocean, Mission, and Soquel

Master Transportation Study G VI-3. Pedestrian System, page 93 Master Transportation Study G VI-3. Pedestrian System, page 94 Master Transportation Study G VI-3. Pedestrian System, page 95 Master Transportation Study G VI-3. Pedestrian System, page 96 Master Transportation Study G VI-3. Pedestrian System, page 97 G Provide more frequent crossings to shorten the distance between protected crossings; a 300 foot maximum standard is recommended

G Investigate red light and video speed enforcement at major streets such as Mission Street. Advocate for and work with Caltrans to initiate the use of these tools.

Activity Areas Activity Areas are less intensive than Major Activity Centers, and attract less intensive pedestrian activity. They are:

G Concentrated employment uses (i.e. the County offices)

G Neighborhood stores that provide for some of the daily needs of the residents who live within walking distance (i.e. Murray Street and Seabright)

G Elementary, middle and high schools

G Local parks The pedestrian design focus for activity areas is for safety and aesthetic improvements in these quieter residential and employment areas. The design emphasis is on meeting the daily needs of people going to school, working, shopping, and running errands. While attractive, comfortable, and safe streets are the goal, implementation of urban design and streetscape recommendations are not as high a priority as the major activity centers. These areas can benefit from:

G Attractive, safe walking connections from the surrounding neighborhoods

G Landscape setbacks and street tree plantings

G Design sensitivity to the adjacent residential areas

G Having as a priority creating pedestrian school zones for ease of walking to and from school. This could reduce morning peak traffic congestion where elementary school parents drive their kids to school.

G Walking "school buses" -- groups of children walking to school with the guidance of a parent volunteer

G Participation in the Pace Car Program

G Traffic calming measures to reduce speeds

5. Pedestrian Area Connectors High priority will be given to completing and maintaining walkable connections which link Major Activity Centers, Activity Areas and residential neighborhoods, as shown in Figure 10. Improvements focus on supporting walking to transit and the safety of the pedestrian environment along corridors. As with Activity Areas, Pedestrian Area

Master Transportation Study G VI-3. Pedestrian System, page 98 Master Transportation Study G VI-3. Pedestrian System, page 99 Connectors emphasize practical safety and aesthetic improvements intended to encourage people to walk between neighborhoods, centers, and transit stops.

Pedestrian Area Connectors can benefit from:

G Completing sidewalk and wheelchair access ramps

G Benches and pedestrian amenities at transit stops

G Pedestrian-scale signage

G Street trees

G Improved sidewalk maintenance

G Pedestrian lighting

G Pedestrian-activated signals

G Special pedestrian crossing signals and high visibility crosswalks

G Sidewalk assistance program

G Filling in all missing segments of the pedestrian network

G Traffic calming to reduce speeds Key areas to enhance pedestrian connections are:

G A new pedestrian/bicycle bridge over the San Lorenzo River at Highway One

G An enhanced pedestrian/bicycle bridge over the San Lorenzo River at the railroad trestle

G A new pedestrian/bicycle bridge over Branciforte Creek along the San Lorenzo River corridor

G A pedestrian link between the San Lorenzo River Levee path and Highway One

G Add pedestrian connections to the circle trail and yacht harbor

G Add pedestrian connections to Branciforte Creek

G A pedestrian link between Jessie Street Marsh and Ocean View Park

G A pedestrian link under Route 1 along Branciforte Creek

6. Limited Car Access & Car-Free Pedestrian Zones Limited car access and car-free pedestrian zones can offer people relief from the impacts of the car. These special zones open the street for many pedestrian oriented activities, and can attract large crowds of people encouraging economic and social interaction.

Many have experimented with car-free pedestrian and transit streets with mixed success. The successful examples usually occur in commercial areas, of limited size, and

Master Transportation Study G VI-3. Pedestrian System, page 100 in combination with regular special events. Limited access zones in residential neighborhoods create shared-activity areas. These areas allow children to play, neighbors to meet, as well as serving the area's transportation needs. Car-Free Pedestrian Zones can be implemented for specific intervals (once per week or per month) or permanently.

Guidelines for implementing car-free zones include:

G Redesigning of neighborhood streets where children and people have priority over the car.

G Revolving, annual one-day neighborhood street closings for special community events

G Allow residential street closings for one day a year for revolving block parties and other social uses

G Find opportunities for car-free zones that can apply to the downtown, activity centers, beach and residential areas

G Ensure local business support and viability

G Experiment with periodic temporary closures in commercial areas, using temporary blockades to close streets, if successful, use removable bollards for closures

G Before implementing car-free zones develop a public and merchant relations campaign to fully explain the process, and potential impacts. Initially, perform before and after surveys with residents and merchants to identify positive and negative impacts.

7. Maximizing Existing Pedestrian Facilities Encouraging walking maximizes the special resources that already exist in Santa Cruz. Programs can be implemented to enhance facilities, improve safety, provide way finding, and educate citizens. These programs can take advantage of Santa Cruz's large visitor population unfamiliar with the City's resources and walkability. Methods to promote the desirability of walking include:

G Develop educational outreach and promotion - e.g.: signage and maps to "secret" stairs and "hidden" walks

G Increase the visibility of other travel modes; current signage is just for cars (example: at Cliff and 3rd Streets, change the "not a through street" sign to a pedestrian oriented sign such as "stairway to downtown")

G Reclaim network as a resource for pedestrians

G Promote education of non-pedestrians on pedestrian rights and enforce pedestrian safety laws

G Review downtown plan for pedestrian and business frontage along the levee

Master Transportation Study G VI-3. Pedestrian System, page 101 G Sign pedestrian ways/shortcuts that are not readily apparent; such as Arroyo Seco and Chestnut and Locust Street

G Publish a walking map of Santa Cruz, with public rest room locations, drinking fountains, bench, and park locations

G Stamp street names in the side wing of curb ramp

G Improve sidewalk maintenance

Master Transportation Study G VI-3. Pedestrian System, page 102 IMPLEMENTATION Short-Term Short-term implementation actions are strategies, programs, and capital projects that Santa Cruz can implement within the next five years.

Project # Short-Term Implementation Action 1 Adopt Livable Streets design guidelines including parkway designs for sidewalks to comply with ADA requirements for driveway cross slopes and plantings 2 Adopt pedestrian oriented intersection design guidelines and prototypical intersection design standards 3 Adopt street crossing design guidelines 4 Initiate proactive project to notice all parcels in the City that have missing sidewalk advising property owners of requirements and restrictions associated with lack of sidewalk. 5 Initiate proactive program to identify and repair sidewalk in poor state of repair. 6 Develop funding through grants or other resources to assist property owners with the installation of sidewalks. 7 Coordinate pedestrian improvements with other projects to maximize benefits to the community 8 Implement program to sign all pedestrian connections and short cuts in the City. 9 Assist citizens in the implementation of the Pace Car Program 10 Experiment with periodic street closures for Car-Free Pedestrian Zones in the downtown for special events 11 Develop and adopt prototypical pedestrian safety tools for improving spot problems throughout the city 12 Develop an educational outreach and promotion program to encourage walking in Santa Cruz 13 Publish a walking map of Santa Cruz identify locations of trails and paths, public restrooms, parks, benches, and other amenities

Master Transportation Study G VI-3. Pedestrian System, page 103 Actions from Seabright Neighborhood Traffic Management Plan Project # Short-Term Implementation Action 14 Modify the island at the intersection of East Cliff Drive and Jesse Street to provide a channelized bicycle left turn bay and improved crosswalk 15 Implement gateway treatments at the intersection of Cayuga/Soquel 16 Install 4-way stops at Frederick/Windsor and Frederick/Windham with new crosswalks 17 Install a 3-way stop at Frederick/Glenview with new crosswalks 18 Construct a raised mid-block crosswalk on Frederick near Glenview 19 Install 3-way stops at Gault/South Morrissey and Gault/Sumner with new crosswalks 20 Install 4-way stops at Hanover/Sumner and Effey/Sumner with new crosswalks 21 Priority sidewalk completion on Hiawatha and Logan Streets 22 Priority sidewalk completion or asphalt curbing for walkway on Buena Vista between Idaho and Logan Street

Long-Term Long-term implementation actions are primarily capital projects that Santa Cruz can implement in 5-20 years. These capital projects are dependent on available funding.

Project # Long-Term Implementation Action Actions from Seabright Neighborhood Traffic Management Plan 23 Install safety enhancements at the intersections of Broadway/Darwin and Broadway/Sumner 24 Implement gateway treatments along Soquel Avenue and Broadway 25 Frederick Street Park parking modification and sidewalk completion 26 Speed table with raised crosswalk on Gault Street adjacent to library 27 Curb extensions at Gault/South Morrissey to reduce crossing distance 28 Signalized pedestrian crossing and advanced signing at E. Cliff and Hiawatha 29 Curb extensions at East Cliff/Hiawatha intersection in conjunction with signalized pedestrian crossing 30 Improved pedestrian crossing at East Cliff/Jesse Street and installation of a pedestrian barrier at Ocean View Park to channel pedestrians to Jesse Street crossing to access levee path

Master Transportation Study G VI-3. Pedestrian System, page 104 Other Actions Project # Short-Term Implementation Action 31 In conjunction with private development, inventory and complete sidewalk and wheelchair access ramp system in Major Activity Centers (Pedestrian Priority Areas) shown in Figures 6-9 32 With private development, inventory and complete sidewalk and wheelchair access ramp system in Activity Areas shown in Figures 6-9 33 With private development, inventory and complete sidewalk and wheelchair access ramp system along Pedestrian Area Connectors shown in Figure 10. 34 Construct a pedestrian and bicycle bridge over the San Lorenzo River at Route 1 35 Widen and improve the pedestrian and bicycle bridge over the San Lorenzo River at the railroad trestle 36 Construct a new pedestrian and bicycle bridge over Branciforte Creek along the San Lorenzo River corridor 37 Develop link between the San Lorenzo River levee path and Highway 1 38 Develop pedestrian connections to the circle trail and yacht harbor 39 Add pedestrian connections to Branciforte Creek 40 Develop pedestrian connection between Jesse Street Marsh and Ocean View Park 41 Develop pedestrian link under Route 1 along Branciforte Creek 42 Develop and implement a landscaping, sidewalk, and lighting district citywide to fund the desired pedestrian network.

Master Transportation Study G VI-3. Pedestrian System, page 105 Master Transportation Study G VI-3. Pedestrian System, page 106