MEMORANDUM

To: Brian Swets—City of Portsmouth | Emily Crow—McBride Dale Clarion

From: Jonathan Whitehurst, Stephen Stansbery, Lydia Statz – Kimley-Horn

Date: September 2017

Subject: Transportation Assessment – Revised Draft

Overview Portsmouth lies at the center of in a strategic location reinforced by important local and regional transportation connections and notable maritime access. Portsmouth’s historic grid network and robust connectivity to the larger region, coupled with its central location and proximity to the river, enhance the City’s walkability (and bikeability), historic charm, and regional appeal. These advantages uniquely position Portsmouth to continue to lead the region in delivering a balanced transportation system that advances broader community initiatives such as historic preservation, healthy lifestyles, equitability, economic vitality, vibrant neighborhoods, and long-term prosperity.

The City’s position along the Elizabeth River and the mix of regional through traffic and local trips also contribute in part to local transportation challenges. As with other American cities in coastal geography, the challenges facing Portsmouth with respect to land use, transportation, and economic development are made worse during adverse storm events, which flood streets and affect connectivity. These adverse storm events are occurring more frequently and with more severity. This memorandum summarizes an assessment of the City’s transportation system as part of the Build One Portsmouth process. The memorandum places a general overview of existing condition into a broader context that connects transportation to other elements of the Build One Portsmouth process. The Transportation Assessment memo includes the following sections:

 Travel Options—Overview of the various ways people can move within and through the City with additional notes about heavily traveled roads and congested corridors

 Regional Connections—Description of recent and future links to the larger region

 Climate Change—Impact of climate change on the transportation system

 Mobility Opportunities—Overview of strategies to align transportation with broad community initiatives

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This memo establishes the transportation needs that will be accounted for in the Build One Portsmouth comprehensive plan update. The foundation for this assessment is twofold: stakeholder feedback, which was established in interviews conducted in October 2016 with the various agencies and departments associated with transportation decisions in Portsmouth; and Kimley Horn’s technical assessment of existing and anticipated conditions. The conclusions of the assessment and recommended topics to address in the plan are provided in the final section of the memo.

STAKEHOLDER FEEDBACK In October 2016, members of the project team met with a variety of stakeholders to discuss issues and needs associated with transportation in the City. Stakeholders included city staff from planning, public utilities, and public works and staff from the Hampton Roads Transportation Planning Organization (HRTPO). The Transportation Assessment memo reflects feedback received during these sessions, and the feedback will be referenced as transportation strategies are refined and integrated into the Build One Portsmouth comprehensive plan. Key takeaways from the stakeholder sessions have been organized around two themes prominent in this memo—Travel Options and Regional Connections.

The effect of sea level rise and climate change also was a common discussion point during the interviews, with most stakeholders declaring that resiliency must play a role in the city’s future transportation decisions. While not called out specifically in the stakeholder feedback below, it is noted that Portsmouth’s susceptibility to climate change in general and adverse weather events in particular affect travel options and regional connections.

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Travel Options Travel within Portsmouth benefits from shorter trips and a grid street network. The City’s gridded streets facilitate short trips, make it easier to bike and walk, and provide redundancy in the network. However, regional traffic (i.e. getting through, into, and out of the city) is more challenging particularly during peak periods and following adverse weather events. While City leaders can and should have a strong voice in regional transportation decisions affecting Portsmouth, Build One Portsmouth needs to express a mobility philosophy and transportation priorities for both the management of local systems and the bigger regional connections. In particular, policies from the comprehensive plan need to support local mobility for people and freight by:

 Enhancing transit

 Promoting walking and biking in the city

 Advancing traffic calming (i.e. establish a way to respond to citizen complaints)

 Identifying ways to communicate transportation information (e.g., short- and long-term road closures)

 Improving safety conditions associated with freight movement by road and rail Roads & Highways

Commuting Patterns While most (81.9%) Portsmouth residents commute to work alone in their personal vehicle, the city’s rate of single-occupancy vehicle use is lower than every jurisdiction in the region except Norfolk (74.1%). This commuting statistic reflects the city’s compact design and robust employment sector. However, many people commute into and out of Portsmouth. As shown in the graphic below, 35,370 people commute into Portsmouth and 24,430 people commute out of the city compared to 18,540 people that both live and work in the city. Many of the commuters into and out of the city rely on a few heavily traveled arterial corridors to connect them throughout the region. The result of these commuting patterns is reflected in the traffic volumes and resulting average daily traffic map.

18,540 35,370 commuters living & working in 24,430 commuters into Portsmouth Portsmouth out of Portsmouth Mostly from Chesapeake, Beach, and Norfolk Mostly to Norfolk, Chesapeake, and Virginia Beach

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Congested Corridors Motorists in the Hampton Roads Region experience congestion during the morning and evening peak periods. Due to its unique geography and central location in the Hampton Roads Region, Portsmouth has historically had some of the most heavily traveled corridors in the region, including the Western Freeway, Fredrick Boulevard, George Washington Highway, London Boulevard and the new Martin Luther King Expressway. Likewise, Portsmouth has led the region in percentage of lane-miles operating in severely congested conditions during the morning peak period over the last few years, primarily due to backups on approaches to the Midtown and Downtown Tunnels.

The tunnels connecting Portsmouth to Norfolk across the Elizabeth River are critical links in the regional network and experience some of the highest congestion and travel time indexes in the region. However, several significant transportation projects have been completed since 2015 to help mitigate congestion in the tunnels and along other major roadways in Portsmouth. These projects include expansion of the Midtown Tunnel, improvements to the , and construction of the Martin Luther King Expressway. As a result, travel patterns are significantly different today than they were only 18 months ago.

While delay has anecdotally decreased in recent months with the completion of projects that have improved the river crossings, updated corridor congestion data is not yet available. Data provided by HRTPO shows average annual daily traffic for the period between January 1, 2017 and August 31, 2017 to be 72,600 at the Downtown Tunnel, 29,060 at the Midtown Tunnel, and 53,620 along the Western Freeway at the Suffolk/Portsmouth city limit. I-264 between Victory Boulevard and Portsmouth Boulevard carried 27,420 vehicles eastbound and 26,943 vehicles westbound during the same period.

Most Congested Corridors Freight Delay (Source: HRTPO 2015 Congestion Report) In addition to time lost in traffic by commuters,  Garwood Avenue (Greenwood Dr to travel delays prior to the tunnel improvements Elmhurst Ln) had notable impacts on freight movement and  High St (Effingham St to Crawford St) business operations. Trucks were delayed 205  I-264 (Portsmouth Blvd to Norfolk)* hours per week on average in 2010 at the  Midtown Tunnel* Downtown Tunnel (the worst truck delay in the  Portsmouth Blvd (Effingham St to region) and 115 hours per week at the Midtown Tunnel. At the time, costs to businesses were Port Centre Pkwy (congested AM estimated to be more than $5 million per year peak period) due to delay. While delay costs may have  Tyre Neck Rd (City limit to High St) leveled off or decreased in the short-term,  Victory Blvd (Portsmouth Blvd to I- future port expansion and regional 264)* transportation projects such as the Third  Western Freeway (West Norfolk Rd Crossing could result in more freight traffic. to Midtown Tunnel)* The port expansion in particular will lead to *State-owned corridors increase in freight tonnage, particular via rail. Most congested corridors are measured at a level The frequency of roadway disruptions due to of service E or F, or have a travel time index of 1.3 rail traffic is expected to increase as freight or above (1.3 indicates that a 10-minute trip could tonnage increases. take 13 minutes).

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AM Peak Congestion in the City of Portsmouth (Source: HRTPO 2015 Congestion Report)

Note: Due to limitations in available travel demand data, expansion of the Midtown Tunnel, improvements to the Downtown Tunnel, and construction of the Martin Luther King Expressway are not reflected in these congestion maps from HRTPO regional data.

PM Peak Congestion in the City of Portsmouth (Source: HRTPO 2015 Congestion Report)

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Typical Traffic – Monday 7:45am (Source: Google Maps, September 2017)

Typical Traffic – Thursday 5:15pm (Source: Google Maps, September 2017)

The above Google maps from September 2017 do not represent official data, but provide a glance into typical traffic conditions after the recent tunnel improvements and opening of the MLK Expressway.

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ACTIVE TRANSPORTATION Portsmouth is fortunate to include a largely intact grid network, relatively short distance between homes and destinations, proximity to the river, and interest in making connections to Norfolk, Suffolk, and Chesapeake. The city also has a history of promoting walking and biking to address transportation needs and advance broader initiatives such as community pride healthy lifestyles, equitability, economic vitality, and neighborhood vibrancy. Portsmouth continues to make intentional efforts to lead the Hampton Roads region in offering a balanced transportation system that offers true choice in transportation.

While the city is positioned to make strides in walkability and bikeability, gaps in the dedicated bicycle and pedestrian network contribute to inefficient and unsafe conditions. As with other areas in the region, geographic barriers create challenges to implementation. These barriers—which include natural features such as bodies of water and manmade features such as railroad and major highways—will have to be considered to enhance connectivity between destinations. Several efforts are under way to expand regional trail networks, including studies to convert former railroad beds to potential shared use paths. In the City of Portsmouth, roadways with lower volumes and lower speeds may be necessary to complete gaps in the local and regional network. A complete streets policy for the city could require bicycle and pedestrian facilities to be considered for roadway projects as context warrants.

One way to achieve mobility objectives is through the strategic conversion of vehicle lanes miles to active transportation facilities. Road diets have been recommended in the past, but until recently were typically viewed as infeasible because they often resulted in a loss of lane miles, one of the main factors that determined the city’s total maintenance reimbursements from the state. However, recent changes at the state legislature allow the conversion of up to 50 vehicle lane miles to bicycle facilities without the loss of maintenance funding.

For intercity connections across the Elizabeth River, bicyclists and pedestrians use the Elizabeth River ferry, the Western Freeway bridge, or the Southern Norfolk . These crossings provide some connections between Portsmouth and Norfolk for more ambitious travelers to supplement local (neighborhood-scale) mobility. By recognizing active transportation as a viable commuting and functional transportation option, the city may hope to stabilize its congestion, provide additional accessibility to those without vehicular transport, and enhance “last-mile” mobility by connecting with the existing HRT transit system.

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BUS SERVICE Ridership at a Glance The City of Portsmouth is served by , which Approximately 6% of HRT’s service hours are operated operates public transportation services within the City of Portsmouth, which is roughly equivalent to their share of the regional population. HRT ridership for most of the Hampton Roads region. overall has declined from a peak in 2012, but the 18 Services in the City of Portsmouth million unlinked trips in 2015 still represents an 11% include bus, ferry, and paratransit. increase since 2006. Only 2.2% of Portsmouth Seven routes currently serve the City commuters used transit to travel to work in 2015, even of Portsmouth, with two of these linking though about 18,000 (18% of the population) work within the city to Norfolk and Chesapeake. the city and another 15,000 (15% of the population) Most of these operate on 30-minute workers commute to either Norfolk or Chesapeake. With headways at peak travel times. a higher level of transit service, many of these workers

HRT is currently updating the 2011 Transit Development Plan (TDP), with the plan expected to be final in November 2017. The TDP—a ten-year plan required by the Department of Rail and Public Transportation—outlines existing transit service, plans for service enhancements, future service and anticipated costs. As part of the planning process, HRT has analyzed service, socioeconomic and demographic data, and engaged stakeholders and the public to create a blueprint by which HRT will fund future improvements to its services and operations. HRT recently briefed city staff on preliminary recommendations that may be included in the TDP. The preliminary recommendations include updated alignments to four routes, increased frequency on two routes, the addition of a new route, and the removal of a route. These preliminary recommendations are being revisited following meeting between HRT and city staff in July 2017.

Over the next few months, HRT staff will be calculating operations and maintenance costs of changes in the proposed service plan. As a 10-year plan, the Transit Development Plan (TDP) will provide a guide for service changes over the next decade. The plan will include a phased implementation schedule—wholesale changes are not anticipated in a single fiscal year. Considerations for phasing will include capital expenditures such as additional peak hour vehicles that will be needed to operate the recommended services. Each city served by HRT approves the recommended service plan as part of their annual budget process. For routes running between cities (several of the Portsmouth routes run between Norfolk and/or Chesapeake), both cities must agree to the change in service and cost when annual costs are expected to increase compared to the previous year due to changes in service. As a result, changes in the TDP likely will take additional time to implement.

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Current Hampton Roads Transit Routes serving the City of Portsmouth. (Source: Hampton Roads Transit.)

FERRY Hampton Roads Transit provides passenger ferry service between Downtown Portsmouth and Downtown Norfolk. Ferries operate every 30 minutes, with 15-minute service offered during the summer at peak times. An adult fare for a single trip across the river will increase to $2 in October 2017. The chart on the following page shows ferry ridership by month since fiscal year 2014. Ferry ridership has been trending upward since the Waterside District in Norfolk reopened in spring 2017.

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Ferry Ridership by Month - FY2014 to FY2017 Source: Hampton Roads Transit 80,000

70,000

60,000

50,000 FY 2017

40,000 FY 2016

Riders FY2015 30,000 FY2014 20,000

10,000

- Jul Aug Sep Oct Nov Dec Jan Feb Mar Apr May Jun

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Regional Connections

THE HAMPTON ROADS CROSSING STUDY The Hampton Roads Crossing Study is an ongoing project to assess which transportation options and opportunities are best suited to the region’s needs as it grows, originally initiated after opening of the Monitor-Merrimac Bridge. Recent and ongoing developments of the Hampton Roads Crossing Study will have a direct effect on the City’s ability to achieve stated goals related to economic vitality, vibrancy, prosperity, and quality of life. In 2016, the HRTPO and the Commonwealth Transportation Board endorsed expanding the Hampton Roads Bridge Tunnel as the preferred alternative from the Hampton Roads Crossing Study. Both bodies also approved further study of the other alternatives from the report as additional congestion relief solutions. In May 2017, the HRTPO, VDOT, and HRTAC (Hampton Roads Transportation Accountability Commission) signed a Memorandum of Understanding for the funding and goals of the additional study. The study will be led by a working group comprised of voting and advisory members. Portsmouth is a voting member of both the working a group and the policy committee that will vote on the study before it goes to the HRTPO Board.

It is critical that additional analysis and alternative assessment occur as part of the additional study. Alignment alternatives for each potential option need to be fully vetted. Those options that fail to fully meet the study’s stated purpose and goals should be adjusted or eliminated from consideration for the regional transportation plan. The vetting and study also should include adequate time for a full review of findings by localities and provide transparency in how feedback is processed. It is important for Portsmouth and the region’s other cities to see complete and accurate information for all alternatives and a clear connection to the goals of the study.

There is one proposed alternative crossing that is of particular importance to Portsmouth. This alternative is described in more detail in the Third River Crossing section below.

Because of Portsmouth’s location at the crossroads of a geographically unique region, the city is greatly impacted by regional transportation projects. Several recent or upcoming improvements have the potential to improve congestion and increase regional connectivity.

ROADWAYS

Tunnels Though regional in scope and impact, the Elizabeth River Tunnels project improvements resided almost solely within the City of Portsmouth and affect local mobility. The projects included a new two- lane tunnel adjacent to the existing Midtown Tunnel, maintenance and improvements to the Midtown and Downtown Tunnels, and extension of the Martin Luther King Freeway to connect the two tunnels. The MLK Freeway opened in November 2016, with dynamic messaging signs allowing drivers to choose between the two tunnels, and rehabilitation work is complete on the Downtown tunnel. These improvements have altered travel patterns across the Elizabeth River. According to Hampton Roads

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District Tunnel Traffic Volume & Stoppage Reports published by VDOT, average daily traffic from August 2016 to August 2017 increased nearly 1.86% at the Downtown Tunnel but 19.51% at the Midtown Tunnel. Allegorically, drivers are reporting significantly faster travel speeds and less congestion in both tunnels than under pre-November 2016 conditions.

Tolls As previously stated Portsmouth’s location in the center of Hampton Roads and along the Elizabeth River has a variety of implications on transportation for the city’s residents, employees, and visitors. Numerous studies cite the impact of tolls, ranging from travel patterns to business development. For this reason, tolls have direct and indirect effects on stated community initiatives such as historic preservation, healthy lifestyles, equity, economic vitality, vibrant neighborhoods, and long-term prosperity.

Even where tolls are not a significant part of the transportation network, travel patterns can be difficult to model and predict. When tolls contribute to recent and ongoing changes to the transportation network as in Portsmouth, reliable data can be even more difficult to obtain and interpret. However, surveys and interviews shed light on the implication of tolls. Old Dominion University’s 2016 State of the Region Report noted that 65% of employees in the region cross a city or county boundary when traveling to work and references the university’s 2015 Life in Hampton Roads Survey that indicated 51% of drivers changed their route in response to the imposition of tolls on the tunnels. The more recent 2017 Life in Hampton Roads survey asked 908 residents of the Hampton Roads area about their driving habits and opinions on bridge and tunnel tolls. While not specific to the City of Portsmouth, 48% of respondents reported that they avoid visiting neighboring cities due to congestion and 33% reported they take a different route to avoid tolls.

Given Build One Portsmouth’s goal of making the city a thriving, resilient, evolving, and equitable place, understanding how recent changes to tunnels and the expected increase to toll prices over time is important. The city should partner with HRTPO to conduct a follow-up study to evaluate the impact tolls have had and likely will have in the future.

Third River Crossing As mentioned in Stakeholder Feedback section, the Hampton Roads Crossing Study endorsed expanding the Hampton Roads Bridge Tunnel as the preferred alternative and funding was approved to study other alternatives from the report as additional congestion relief solutions. Additional analysis and thorough assessment of alternatives is needed as part of this additional study to ensure each alignment is fully vetted. Alignments that fail to fully meet the study’s stated purpose and goals should be adjusted or eliminated. The study should allow a full review by local jurisdictions and provide transparency in how this feedback was used. It is important for Portsmouth and the region’s other cities to see complete and accurate information for all alternatives and a clear connection to the goals of the study. For example, alternatives that include the I-564 and I-564 Connector (segment 10B), VA 164 Connector (segment 13), and I-564 Connector and VA 164 Connector Interchange (segment 12B) would have negatively affect Portsmouth’s mobility and quality of life. These impacts include

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TRAILS In addition to regional roadway connections, a regional trail network enhances the economic, physical, and social well-being of the region’s they serve. Once completed, the Trail will connect downtown Suffolk to Virginia Beach with a 41-mile route. The trail will connect four of the five downtowns/town centers in South Hampton Roads, including Portsmouth. A mix of facility types would be necessary, including dedicated trails (preferred), bicycle lanes, paved shoulders, and the HRT Ferry. A 1.8-mile rails-to-trail segment in Portsmouth has been approved for funding for both planning and construction. The completion of the full 41 miles will be a long-term endeavor with active participation from Suffolk, Chesapeake, Portsmouth, Norfolk, Virginia Beach, HRTPO, Virginia Department of Transportation (VDOT), and the Virginia Department of Conservation and Recreation.

Source: South Hampton Roads Trail Facebook

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Climate Change

Extreme flooding events are currently disrupting transportation networks more frequently and are anticipated to become more prevalent as sea levels are expected to rise at an accelerated pace for many coastal regions, such as the Hampton Roads Region. The Hampton Roads Region—second only to New Orleans in terms of vulnerability to sea level rise in the United States—is seeing more frequent storm surges and higher tides than before. Based on past storm events, the region’s east coast location make it prone to significant storm surges about every four to five years.

The region has experienced a total of 1.29 feet of relative sea level rise since 1927, based on the Sewell’s Point tide gauge located on Naval Station Norfolk. Based on the four scenarios in the National Climate Assessment (low/historic, intermediate-low, intermediate-high, and high), projected relative sea level rise is in the range of 1.6 to 7.5 feet between 1992 and the year 2100 at Sewell’s Point.

Though none of Portsmouth’s roadways would likely be submerged by a 2-foot sea level rise, a 2-foot sea level rise plus a 50-year storm surge would submerge 31% of the city’s roads. For comparison, the water levels experienced during and Irene were roughly equivalent to a 2-foot sea level rise plus a 25-year storm surge. Portsmouth is identified as the third-most vulnerable jurisdiction in the Hampton Roads TPO by percentage of the city’s roads submerged (behind Poquoson and Hampton). Many gates to military installations in the area are also affected, including the Craney Island Fuel Terminal, Naval Medical Center Portsmouth, and .

Consideration also must be given to anticipated wave heights resulting from potential storm surge at tunnels. Large waves during a storm could overtop some of the portal walls and create a flooding situation, such as the Midtown Tunnel flooding during Hurricane Isabel.

RECURRENT FLOODING Portsmouth also is troubled by recurrent street flooding. Within the City limits, 233 miles of street centerline miles are located within a 1% or 0.2% flood zone (100-year or 500-year), with an additional 19 miles vulnerable to storm surges caused by Category 1 or Category 2 storms. Many areas in the city that are not officially within a flood zone have been reported to the city as frequent street flooding areas, indicating that more of the city’s stormwater infrastructure may not be performing as needed. The roadways affected by each of these vulnerabilities are shown on the map on the following page.

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Conclusions Based on the findings of the assessment of historical and current transportation and mobility conditions and assets Kimley-Horn offers the following concluding thoughts and recommendations for inclusion in the Build One Portsmouth Comprehensive Plan update.

MOBILITY The City’s grid network and connection to regionally-significant arterials offer opportunities to enhance mobility for short local trips and longer regional trips to Chesapeake, Norfolk, and beyond.

Opportunities Local transportation options: The solutions to Hampton Roads’ congestion problem must be regional in nature, but Portsmouth’s local network should focus on connectivity and providing alternative transportation modes and routing options to minimize local trips having to rely on regional roadways. Potential Strategies:

 Protect local interests by seeking to align regional solutions with Build One Portsmouth value statements.

 Seek ways to enhance local connectivity through active transportation facilities that connect over or under rail facilities, major highways, and other mobility barriers.

 Invest in strategic improvements that improve mobility on major local corridors, such as signal timing and intersection improvements. Travel Demand Management: Hampton Roads Transit currently operates a travel demand management service known as TRAFFIX, which promotes and implements a variety of transportation alternate programs in partnership with local employers. In public input connected to the City of Portsmouth’s Master Transportation Plan, over 75% of commuters indicated they would be willing to consider another travel mode instead of driving alone. Potential Strategies:  Actively participate in regional Transit Demand Modeling efforts, monitor effectiveness, and identify improvements and investments to increase involvement.

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ACTIVE TRANSPORTATION Portsmouth is uniquely positioned to be a regional leader in active transportation and can leverage this position to advance broader community initiatives tied to quality of life and economic sustainability.

Opportunities Complete Streets Policy: Complete Streets account for users of all modes and abilities, and helps weigh the benefits of various types of facilities on each street according to land use context, local needs, and the street’s place in the transportation network. Potential Strategies:  Adopt a Complete Streets Policy to guide future street design engineering decisions.

Bicycle and Pedestrian Master Plan: A bicycle and pedestrian master plan can help guide investment in active transportation facilities to ensure the network develops in a strategic connected manner that serves the city’s overall goals. Potential Strategies:  Complete a bicycle and pedestrian master plan to identify priority corridors throughout the city that will serve local mobility needs, as well as opportunities to connect to regional trails for longer distance travel. Road Diets and Maintenance Funding: In the past, road diets have been thought of as infeasible as they typically resulted in less maintenance funding due to the state’s lane mileage funding formula. However, the state policy recently amended to be more forgiving. Potential Strategies:  Explore future opportunities to incorporate on-road bicycle facilities in future improvements.

CLIMATE CHANGE While the city’s flat geography and coastal location make it one of the most vulnerable places to sea level rise and annual storm surges in the nation, partnerships and proactive planning can lesson impacts and mitigate issues over time.

Opportunities State and Regionally Partnerships: Climate change is a broad issue that affects the entire region. The City of Portsmouth should seek strategic regional partnerships to identify potential solutions to shared challenges. Potential Strategies:  Collaborate with VDOT and HRTPO to develop adaptation strategies for new roadway projects that include better stormwater infrastructure, designated elevated evacuation routes, and prioritizing critical corridors for improvements.

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Critical Facility Assessment: Many of the city’s critical facilities, including health care facilities, schools, fire and ems stations, and facilities that could be used as shelters in times of an emergency, are within the flood zone and could become unreachable. Potential Strategies:  Conduct a detailed assessment to identify potential solutions ranging from awareness campaigns to relocation of services.

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