TransportationA Framework For In Northwest

MICHIGAN PROSPERITY REGION 2 TRANSPORTATION CHAPTER: 2015 31 52 42 50 35 33 40 48 46 44 MICHIGAN

LOWER

is instead intended intended instead is is not intended nor shall for, it NORTHWEST

Framework FOR A REGIONAL PROSPERITY PLAN A REGIONAL PROSPERITY they supersede and local government the decision-making. Moreover, Framework be infringing used for, upon orthe taking of personal property rights enjoyed by the residents of Northwest Michigan. the informationRather, included in the serveto as a compilation ofbest local decision- guide help practices to makers who would address to like the issues identifiedFramework. in the Non-Motorized Strategy & Policy Planning & Incentives Financing Regional Michigan Northwest & Outreach Data, Education Development & Implementation NETWORK TRANSPORTATION was FRAMEWORK STRATEGIES NON-MOTORIZED TRANSPORTATION NON-MOTORIZED RAIL, AIR, & FREIGHT WATER LOCAL IMPLEMENTATION CHECKLIST MULTI-MODAL TRANSPORTATION MULTI-MODAL were built 6 9 5 4 13 17 14 19 27 23 Framework

Framework for Our Future adopted goals from local plans and local plans from and goals adopted Strategiesplanning initiatives. are not recommendations, as do nor intended to obtain input from individualsto with disabilities, minorities, youth, those in poverty, and others that historically have been underrepresented planning in processes. Public input was used to identify priority community issues and concerns, and help to develop actions. and strategies, goals, actions and strategies, The goals, included in the heard throughout input public upon the process, as well as on existing and developed by Networks Northwest with with Northwest Networks by developed input and partnerships from a variety of community stakeholders members and of the public. An intensive community outreach process featured a wide variety opportunities of participation for the from surveys, groups, focus events, public: discussions public and forums, online throughout region-wide held were the process. Outreach activities and engagement opportunities included series communitya of dialogues, designed events other and interviews, to identifyto the steps community a can take addressto a local issue, if desired. The includes Legislation Resources Prosperity Travel Future Predicting Service of Levels State Transportation Plans Transportation Planning Transportation Planning Transportation Access & Equity & Studies Plans Transit Transportation & Economic Transportation Planning was prepared as as prepared was INTRODUCTION 3 ROADS & HIGHWAYS TRANSIT 26 TRANSPORTATION PLANNINGTRANSPORTATION was developed as part of Framework for Our Future: A , a regional resource for local

Framework for Our Future In This Report 2 decision-making processes, and will help natural resources. Data and information supplement communities help will and planning, local deliberation, their as housing, transportation, land use, energy, arts and culture, workforce and community economic development, health, food and farming systems, and The information and tools that can help stakeholders address issues such defined goals and strategies that will will that strategies defined goals and success. further Michigan’s Northwest the other around. way It also provides state streamlining for framework the services regionally the highlighting and non-profit partners identify to regionally aligned growthand investment strategies for the State of Michigan support, to not as initiated Governor by Rick Snyder and signed into law as a part of the FY 2014 budget. The Regional Prosperity Initiative and public, private, encourages local working meet to local goals. The Framework Regional Prosperity Michigan’s Initiative, Regional Prosperity Plan for Northwest Michigan organizations community governments, A Framework for Growth and Investment in Northwest Michigan part of the ©©A Framework for Transportation: Introduction

Northwest Michigan’s transportation network of roads, trails, rail, air, and water transportation is perhaps one of its most critical economic development assets. Our road systems, in particular, are foundational elements to both our lifestyles and our economy, providing mobility and access to employment, housing, services, and recreation. In addition, our road networks connect us to the global economy and facilitate the movement of goods and services within and between communities: all parts of our economy, from manufacturers to the tourism industry, rely on the ability to access a well-maintained road network.

An effective transportation system relies on more than roads alone, however. Public transit systems are vital options for many residents—particularly for the elderly, disabled, and others without a vehicle—in getting to work, shopping, and medical appointments. Non- motorized transportation networks encourage healthy physical activity and promote economic opportunities, while providing additional important Improving and enhancing transportation infrastructure connects communities and transportation options for those that is vital to the region’s economy. can’t or don’t drive; and walkable communities with ample non-motorized connections are becoming increasingly local funding for road maintenance • , the Grand Traverse desirable places to live. Rail and and improvements, the Michigan Bay, , and air transportation, meanwhile, are Department of Transportation manages hundreds of inland lakes comprise important elements of our economic state and federal roads throughout a significant portion of the region’s infrastructure, transporting freight the region, transit agencies provide boundaries and land area. These to and from the region, and in the bus services in many of the region’s waterbodies limit a grid based case of air transportation, supporting counties, and local governments, road network and concentrate both business and tourism activity. road agencies, and advocacy groups travel into relatively narrow areas, Maintaining, enhancing, and improving come together to develop bike paths creating congestion in many areas. this multi-modal transportation and trails. Additionally, some local infrastructure is vital to our region’s governments and road agencies • Long winters put an extra burden economy, connecting communities to have adopted Complete Street on road conditions and road each other and to global markets. resolutions to ensure transportation agency budgets, and continuous network design and improvements reductions in gas tax revenues Planning for these many transportation meet the needs of all users, including diminish the resources available elements requires involvement passenger vehicles, commercial to meet ever increasing demands from many agencies and non-profit vehicles, bicycles, and pedestrians. for infrastructure maintenance organizations that spend millions of and improvements. dollars annually to maintain and improve Even with all these efforts, a number of the transportation network. County key issues present challenges in local, • Decisions on transportation Road Commissions and some local county, and regional efforts to provide investments are made by diverse units of government receive state and the most effective transportation system: and distinct entities with differing

3 funding sources and requirements, are available. Public input indicates The ability of the region to meet these making coordinated multi-modal that limited schedules and long challenges will require significant investments more challenging. travel times discourage the use of coordination, communication and transit for accessing employment consensus throughout the region. • Transportation costs are among the or services—particularly for A Framework for Transportation largest household expenses for most low-income workers, who often in Northwest Michigan identifies Americans, second only to housing. work nights and weekends. opportunities and roles for various For lower income workers, many of community players to meet local, county, whom must live farther away from • Bicycle lanes and paths are and regional transportation needs in a the region’s employment centers, expanding, but there are still many coordinated fashion in order to maximize transportation costs can exceed connections that are needed to transportation investments. For instance, the costs of housing in some rural provide a viable transportation local policies such as Complete Streets areas. In some areas, the combined alternative; and the focus on non- ordinances or resolutions can aid in costs of housing and transportation motorized options has been on accommodating all road users, while consume nearly three-quarters of their recreational value, versus coordination among transit stakeholders an average household’s income. their transportation utility. can work to coordinate regional transit programs to improve travel times • There are few viable alternatives • There are differences among and cross-county service. In addition to the private automobile. There decision makers and the citizenry to local and regional strategies, the have been significant improvements on the best way to improve mobility Framework for Transportation also to transit systems in the Grand and access: some believe that includes the Transportation Improvement Traverse area, with fixed routes expanding existing roads and Program, which features a list of major within the Traverse City and building new roads is best, while transportation projects to occur in commuter routes from Benzie and others believe that we can’t the region over the next 5 years, as Leelanau County to Traverse City, build our way out of congestion prioritized by local communities. but large geographies and limited and will need other solutions. funding restrict the services that

Transportation & Economic Prosperity

An efficient, well-maintained and connected transportation network is a foundation for economic development and prosperity:

• Well-maintained road systems provide confidence for businesses that they can market their goods in a timely and effective manner.

• Effective public transit systems allow more people to get to work, as well as to shop and attend appointments.

• Non-motorized transportation networks encourage healthy physical activity and promote varied economic opportunities.

4 ©©Transportation Planning

Northwest Michigan’s population is challenging the capacity planning for be selected, reviewed, and approved rapidly growing and changing. Between major infrastructure investments. through a public process involving a 1970-2000, the region’s population variety of transportation stakeholders more than doubled. While growth has Commuting patterns also have a major and government entities at the local, slowed somewhat since then, the region impact on the region’s transportation county, regional, and state levels: remains one of the fastest growing system. All counties in the region regions in Michigan and the Midwest, rely on out-of county workers for a • All cities and incorporated villages with growth rates in most areas of the substantial portion of their employment. in the region are designated Act region far exceeding population growth 2011 Census data indicates that all ten 51 road agencies that receive in the State of Michigan. Continued counties in the region depended on state and federal funding. These growth is anticipated over the next out-of county labor for 20% or more of communities are also in a unique 25 years, increasing from 297,912 their workers. Conversely, the majority position to have direct responsibility in 2010 by nearly 60,000 in 2040, of workers in some counties—Missaukee for both transportation and land to an estimated 357,716 in 2040. (57%), Benzie (53%), and Leelanau (53%) use. They often also administer counties –commuted to work outside local funds, primarily for operation The region’s population is not only of the county. This in-flow and out-flow and maintenance, to manage the growing—it’s changing. The population of workers between counties in the road system within their borders. overall is getting older as the Baby region means substantial that numbers Road improvement projects on city Boomer generation reaches retirement of communities depend on the region’s or village major streets are eligible age, bringing with it far-reaching road network to access employment. for state and federal funding, but changes to the nation’s housing must go through either the Rural market, service needs, and workforce. Addressing the transportation needs Task Force process for villages The labor pool is shrinking, as are of the region’s changing population or the Small Urban Program for household sizes. With these changes, and workforce requires planning. cities. The nomination process for the demand for housing types and Because of the costs, impacts, and major street improvement projects transportation choices is shifting. other factors involved in maintaining varies by community and may and improving transportation networks, include staff recommendations or The seasonal population increase transportation planning is a complex official action by the City or Village experienced in most process involving a wide variety of Commissions or Councils. For local communities in the summer months stakeholders at all levels of government. road projects that are not county and also has significant impacts on the In addition, transportation planning is primary roads or city/village main region’s transportation network. A 2014 significantly impacted by other planning streets, County Road Commissions Northwest Michigan Seasonal Population decisions and factors such as, state and townships can cooperate to Analysis, conducted by the Michigan and federal funding availability. fund road improvements. Often, State University Land Policy Institute, property owners along the proposed found that the region’s population grows Transportation Agencies improvement road are assessed by about 50,000 people during the Federal road funding for Northwest a fee, but the costs borne by the summer months. In addition, a recent Michigan comes from the Federal property owners cannot exceed survey conducted by the Anderson Surface Transportation Program (STP) 50% of the total project cost. Group commissioned by Traverse City Rural for improving the federal aid road Tourism calculated that over 3.3 million system, while state funding comes • County road commissions are visitor trips were made to the Traverse from a variety of sources depending independent agencies that are City area. The National Cherry Festival on the purpose. For instance, snow generally appointed by elected in early July attracts over 500,000 people plowing and general road maintenance county boards, although they are over an eight day period, the Traverse needs are funded through the Michigan elected by voters in Benzie, Leelanau City Film Festival in late July attracts Transportation Fund (MTF), transit needs and Missaukee Counties. Road around 120,000 people over a five day are funded through the Comprehensive commissions are designated Act period, and numerous other festivals Transportation Fund (CTF), while the 51 agencies which are responsible and events attract a large number Transportation Economic Development for most roads in the region, and of local attendees and visitors alike. Fund (TDEF) Category D is used for have purview over projects which These seasonal population changes building an all-season network. Most are funded by local millages and strain the ability of the transportation major transportation projects are funded in cooperation with townships. system to meet mobility needs, while by federal and/or state funding and must Projects that receive federal and/

5 Transportation Planning Legislation

From a state and federal perspective, all of northern Michigan constitutes a “rural” transportation area. In the early years of transportation planning, rural highways were designed based the concept that the automobile was a pleasure vehicle. Most roadways not in urban areas were designed to connect town centers to the countryside. As a result, most rural transportation systems were fragmented and lacked consistent quality.

Federal Highway Act of 1956 The Transportation Equity Act By the late 1930s, the desire for the construction of an for the 21st Century interconnecting, national highway system was growing. ISTEA has since been reauthorized twice, once as the The Federal Highway Act of 1956 acted as the catalyst Transportation Equity Act for the 21st century (TEA-21) for the biggest public works project in American history. in 1998 and again as the Safe, Accountable, Flexible, $25 billion was authorized for fiscal years 1957 through Efficient Transportation Equity Act: A Legacy for Users 1969 to expand the interstate system to 41,000 miles. (SAFETEA-LU) in 2005 . TEA-21 and SAFETEA-LU continued the principles of ISTEA with additional requirements for Michigan Public Act 51 of 1951 (Act 51) rural participation in transportation planning as well as Act 51 governs the state appropriations for most Michigan greater emphasis on multi-modal transportation and non- transportation programs, including state and local highway transportation impact of highways. Public involvement is one programs and state and local public transportation programs. of TEA-21’s fundamental requirements, which states that state departments of transportation “shall provide citizens, Intermodal Surface Transportation affected public agencies, representatives of transportation Efficiency Act of 1991 agency employees, other affected employee representatives, The Intermodal Surface Transportation Efficiency Act of 1991 private providers of transportation, and other interested (ISTEA) was formed to create an economically efficient, parties with reasonable opportunity to comment” on environmentally sound national transportation system in order transportation programs. SAFETEA-LU legislation expired to compete in a new global economy. ISTEA provided for at the end of fiscal year 2009 but has been continually statewide planning processes that required the involvement funded through a series of continuing resolutions. of local officials to better understand the transportation needs of non-metropolitan (rural) areas. Involvement was to include: Moving Ahead for Progress in the 21st Century Commonly referred to as MAP-21, this current • Planning of transportation systems; transportation legislation is a two year bill covering fiscal • Funding of specific transportation projects; years 2013 & 2014. Key provisions of MAP-21 include: • Activities to maintain and improve transportation systems. • Consolidation of funding programs by two-thirds • Greater ability to transfer funds among categories However, ISTEA did not include any national standards • Funding for bicycle and pedestrian transportation for the transportation planning process in rural is reduced and consolidated into a broader areas. Individual states adopted varying techniques program called “Transportation Alternatives”; in their rural transportation planning process. • Increase in funding for highway safety projects • A national freight policy will be developed

6 or state funding are defined by Urban Mass Transit Administration In the RTF process, each local road the Rural Task Force process. (UMTA). While there are currently and/or transit agency typically develops no MPOs in Northwest Michigan, TC their own list of priorities which then • There are eight organizations in TALUS (Traverse City Transportation are bought to the RTF or Small Urban the region providing public transit and Land Use Study) operates in meetings to be balanced against the services in nine of the ten counties. a capacity similar to an MPO. TC other members’ needs in consideration The organizations are eligible TALUS was formed to in 1990 in of available funding. The projects for Michigan Comprehensive response to a recommendation selected must meet certain federal Transportation Fund (CTF) funds from the Michigan Department of criteria in order to qualify for the funds; for their portions of the funding. Transportation (MDOT) to prepare as for instance, only federal aid roads an MPO. Organized as a voluntary classified as Minor/Major Collectors • Tribal Governments may designate association by Memorandums of and Minor/Principal Arterials are roads as Tribal Roads and make Understanding between the TC- eligible for this type of funding. Transit them eligible for Bureau of TALUS Board of Directors and the capital projects, such as the purchase Indian Affairs (BIA) funding for City of Traverse City, the Townships of a bus, are also eligible; however, improvements. Tribal Governments of Acme, Peninsula, Long Lake, funds cannot be used for operating are also active in transit, non- and Whitewater, and the Charter cost of running the bus on a route. motorized and other forms of Townships of Garfield and East Bay transportation by initiating and/ in Grand Traverse County, and the With input from all transportation or assisting in the planning Charter Township of Elmwood in stakeholders and the public, the RTF and funding of projects. Leelanau County, the purpose of process culminates in a Transportation TC-TALUS is to provide continuing, Improvement Program (TIP) that covers • The Michigan Department of comprehensive, and coordinated a four year period and addresses Transportation (MDOT) has direct transportation planning to the Grand the most immediate transportation jurisdiction over Michigan’s nearly Traverse area. TC TALUS recently priorities for Northwest Michigan, as 10,000-mile highway system, produced its first Long Range determined by the RTF. The meetings comprised of all I, M, and US Transportation Plan in preparation of the Rural Task Forces and Small routes. It is the backbone of for their eventual official designation Urban Task Forces are all publicly Michigan’s 120,000-mile highway, as an MPO, which included the noticed in the local newspaper and road and street network. Transportation Improvement Plan the meetings are open to the public. recommended by the RTF. • MDOT also administers other In addition to the RTF, Federal Funds state and federal transportation Rural Task Force and are available to small urban areas under programs for aviation, intercity Small Urban Task Force a similar process. The Small Urban passenger services, rail freight, Planning Programs Program provides federal Surface local public transit services, The region’s transportation agencies Transportation Program (STP) funding the Transportation Economic participate in varying capacities in to areas with an urbanized population Development Fund (TEDF), the programs known as the Rural Task Force of 5,000 to 49,999. Road and transit Transportation Alternatives Program (RTF) and Small Urban transportation capital projects are eligible for STP (TAP), and others. In addition, planning processes, which provide state funds. There are four Small Urban Areas the department is responsible for and federal funding to rural counties in the ten county region recognized by developing and implementing a with a population under 400,000 to be MDOT: Cadillac, Manistee, Traverse comprehensive transportation plan spent in their geographic areas. Road City, and Petoskey. Unlike MDOT, RTFs, for the entire state that includes capital projects on county primary and county road commissions, Small all modes of transportation. roads and village main streets, as well Urban Areas do not automatically receive as transit capital projects, are eligible. federal target allocation dollars. The • Metropolitan Planning Organizations representatives of the Small Urban Areas (MPOs) are regional planning The Northwest Michigan region is prepare the Transportation Improvement agencies that operate in larger represented by three Rural Task Plans that are comparable to those urban areas. The Federal Highway Forces, comprised of representatives developed within the RTF process. Act of 1962 requires urbanized of designated Act 51 agencies, which areas to have a continuing and include road commissions, incorporated To be responsive to public needs, local comprehensive transportation villages, public transit agencies, and and state land use, governmental and planning process to become eligible MDOT. A representative of the Grand transportation planning and investment for planning and construction Traverse Band of Ottawa and Chippewa decisions all require public input. funds from the Federal Highway Indians is a member for RTF 10-C. However, engagement in this complex Administration (FWHA) and capital process is a challenge even for elected and operating assistance from the and administrative officials, and even

7 more so for busy citizens. While each or implementation of projects. the FHWA, and FTA if required, for review of the Rural Task Forces has certain Opportunities for public participation and final approval. Once approved, benchmarks to meet for public input in the development of the State the STIP is posted to the MDOT STIP and project nomination, each group has Transportation Improvement Plan Web site. MDOT continues to accept differing methods of communication and are provided throughout the project and address all comments on the outreach, and for approving projects selection process at local, regional, STIP as they are received. Comments as part of the TIP. In addition, many and state levels. This cooperative can be submitted via email at MDOT- of the project nominations for the TIP effort includes, but is not limited to, [email protected] or by come from representative participants, open meetings at the state and local contacting the MDOT Regional Office, who also have differing nominating level where project selection and MDOT TSC, Networks Northwest, or processes. This lack of consistency programming decisions are publicly the applicable Rural Task Force. creates barriers for citizens that considered, opportunities to comment would like to be involved, but must on proposed projects at city council Transportation Planning in struggle to navigate the process. and city manager meetings, and public Local & County Master Plans notices in local newspapers throughout The impacts of land use and State Transportation the state requesting public comment on transportation are closely interrelated: Planning proposed projects. In addition to these all land use decisions have impacts There are two components to State public participation opportunities, MDOT on transportation, and transportation Transportation Planning: the State regions and its Transportation Service improvements likewise have significant Long Range Plan, a broad policy Centers (TSCs) host annual meetings impacts on land use patterns and document that identifies areas in need and summits for rural elected officials, development. The integration of land of improvement and establishes policies tribal members, and the general public, use and transportation is critical to and actions necessary to achieve with invitations mailed to the clerks of achieve the goals outlined in most transportation goals for a 25 year all counties, cities, villages, townships, every master plan in the region, period; and the State Transportation and Tribal Officers within non-MPO such as natural resources, directing Improvement Program, which lists all areas and advertisements through radio development to existing communities, transportation projects scheduled for announcements and press releases. encouraging compact development, construction and identifies available creating a range of housing options, funds needed to implement projects The draft STIP is made available on encouraging cooperation in development throughout a 3 year period. MDOT’s STIP Web site for public decisions, and providing for review and comment for 30 days before transportation choices. Communities The 2010 – 2035 State Long Range Plan, being sent to the Federal Highway have a number of ways to integrate entitled “The Michigan Transportation Administration (FHWA) and the Federal land use and transportation planning. Plan: Moving Michigan Forward” (2035 Transit Administration (FTA) for final MITP) is based on an extensive public approval. An e-mail notification is Many public investments that don’t and stakeholder involvement process sent to county road commissions, directly involve transportation that spanned two years and resulted in Rural Task Force agencies, small nevertheless have significant impacts contacts with thousands of individuals urban communities, Regional Planning on transportation and land use—where through meetings, telephone interviews, Agencies, and local units of government. a city, village or township decide to and webinars (see sidebar, page 12). The STIP can be amended every two develop a park, where counties decide months, if necessary. Whenever to construct a jail or office building, The State Transportation Improvement amended, the STIP is posted to the where school districts decide to build Plan is the final planning document MDOT website for public review and schools, and even where the state preceding the actual construction comment two weeks before it is sent to decides to build regional offices will

DESIGNATION COUNTIES FEDERAL FUNDING STATE FUNDING

RTF 10-A Antrim, Charlevoix, Emmet, Kalkaska $1,718,187 $293,212

RTF 10-B Manistee, Missaukee, Wexford $1,349,604 $193,246

RTF 10-C Benzie, Grand Traverse, Leelanau $1,199,909 $260,510

8 Predicting Future Travel

There are sophisticated computer models that will predict the future volume of travel on roadway, and even test the effect of roadway improvements on that future volume. TC TALUS, has been running computer traffics models for the southern portion of the region since 1990. The most recent modeling efforts were conducted using a model TC TALUS has used in the past and forms the basis of the Long Range Transportation Plan required under federal law. The TC TALUS Board has recommended to move forward with a revised model that will enhance the ability to better predict the effect of alternative transportation on roadway capacity. The Michigan Department of Transportation (MDOT) also utilizes a statewide Travel Demand Model to predict volumes on MDOT jurisdiction roadways throughout the region and state.

The model was most extensively applied to the Friction Factors  Friction factors are used to Grand Vision work. Several areas of the model were calibrate the average trip lengths in a TDM. Specifically, refined. The major inputs for the model included: friction factors limit the average trip length and are used to help calibrate average trip lengths. Road Network Data  The model did not include significant additions to the road network; Auto Occupancy Rates  The MI Travel Counts data was also used to estimate auto Land Use Data (Demographics)  Projected occupancy rates within the Grand Traverse region. increases were calculated for housing, population, and employment by retail, service, and other sectors; Model Validation Process  After the refinement of the above inputs, the model recalibrated Origin – Destination Data  An origin – to a 2007 base year. The validation/calibration destination study was conducted, capturing three process involves comparing model generated link trip types relating to the study area: external- volumes with traffic counts at a specific location. external, internal-external, external-internal. Additional information on the methodology for the Trip Generation  MI Travel Counts data was used Grand Vision Traffic Demand Model is included in to establish new trip production rates. The trip production Task 3.4 Travel Demand Methodology Report. rates for all TAZs were updated using trip production rates from the small urban sample area from MI Travel Counts.

9 all affect transportation patterns transportation to lessen congestion support additional infrastructure as a and needs. Michigan’s Planning on streets and provide for safe and way of improving safety and efficiency Enabling Act requires most all public efficient movement of people and for traffic moving through a growing investments, including “a street, goods by motor vehicles, bicycles, region. Other communities hold that a square, park, playground, public pedestrians, and other legal users.” high-volume, high-speed road moving way, ground or other open space; or traffic through the region will erode the public building or other structure…” An integral component of transportation region’s unique, high-quality life and to be submitted and approved by the planning on a regional basis is the generate sprawl type development. planning commission of that jurisdiction. statutory land use plans of each The Act also authorizes master street city, village or township and their Additionally, both plans and zoning plans that must specify a means for implementation through municipal ordinances aren’t always consistent in implementation in cooperation with the zoning. There are 190 local how transportation issues that extend County Road Commission and Michigan governmental units in the ten-county beyond local boundaries are addressed. Department of Transportation (MDOT). region; 110 of those governments have Development patterns along major master plans, most of which include transportation corridors have major Most of the region’s cities, villages, and a transportation component related impacts on land use and transportation townships, along with some counties, to land use, with direction for specific in neighboring jurisdictions; yet zoning have zoning jurisdiction and are required transportation projects and services. ordinances that regulate development by Michigan’s Planning Enabling Act Nearly all of the region’s county master along these corridors often vary widely (Act 33, PA 2008) to prepare master plans address road maintenance, from community to community, which plans that guide growth, development non-motorized goals, and related can potentially result in disjointed and public investments and zoning issues. However, the degree to which development or access management decisions. The Planning Enabling Act specific transportation improvements that contributes to congestion or also requires master plans to include are addressed varies widely between safety issues along these corridors. adequate provisions for “a system of communities. Some communities

ANALYSIS OF COMMUNITY MASTER PLANS

ADDRESS COMPLETE 27% STREETS GOALS OR POLICIES ADDRESS ALTERNATIVE 43% PARKING STRATEGIES 86% INCLUDE 53% NON-MOTORIZED ADDRESS GOALS OR PLANS TRANSIT 55% INCLUDE A TRANSPORTATION 85% PLAN INCLUDE GOALS ADDRESS ROAD 23% RELATED TO AIR OR MAINTENANCE RAIL TRANSPORTATION

Source: Networks Northwest, 2014

10 REGIONAL TRANSPORTATION ASSETS

BRIDGE

MACKINAW

MACKINAW ISLAND

Public Public Use Private Airport Commercial Passenger Air Service Airport FAA Part 139 Commercial Air Service Airport

BEAVER ISLAND Hospital Helipad 119 EMMET 31 Federal Commercial Port Railroad State Road Major Road 31 Ferry Route 131 County Line CHARLEVOIX N

N. MANITOU ISLAND 32

66

22 S. MANITOU ISLAND ANTRIM 31

22 137 88

LEELANAU

INTERSTATE 72 75 72

72

31 KALKASKA GRAND 131 BENZIE TRAVERSE 113

22 37 115 66

31 WEXFORD MANISTEE MISSAUKEE

55 127 131

11 Opportunities: Community Needs

Together, communities decide how to spend public dollars for and engagement in the process, the region’s three Rural Task transportation investments. These public expenditures are Forces could consider opportunities such as joining together and should be a reflection of the hopes, desires, and dreams to develop a communication program across the region. of the community and the region. Effective, collaborative transportation planning can help to identify opportunities and Another opportunity to enhance local and regional coordinate efforts to maximize those investments in order to transportation planning is within the local master planning ensure the greatest possible good for all citizens in the region. and zoning process. Most local units of government have adopted master plans that guide land use, growth, and other Because transportation funding filters from federal, state and community issues like transportation. Because transportation local sources to diverse agencies with distinct purposes, and land use are so inextricably linked, master plans coordinating and integrating transportation investments can be offer an important opportunity to consider transportation challenging even for the staff and experts in the field, and even improvements in the context of land use changes and more so for public officials and citizens. However, there are development needs. In addition, many communities are important opportunities to provide input to the transportation preparing corridor master plans to address specific areas of planning and investment process, and transportation agencies concern along major roadways. Incorporating comprehensive

Many communities are preparing corridor master plans to address specific areas of concern along major roadways.

are working hard to frame the questions for public input, transportation plans, goals, and strategies in master plans, ensure that the community is aware of the process and the while proactively engaging transportation stakeholders in opportunity, invite participation, and reflect the comments the planning process, can help to guide future transportation received into the plans. Most public agencies now maintain investments in a way that best meets the community’s vision. an email list to share information on the latest plans, public meetings, information, and approval processes. In addition, Annual capital improvement plans (CIPs), which are required citizens can engage with the Rural Task Force that covers their for each local unit of government, offer additional opportunities community. As the primary entity that determines how state to coordinate transportation activities with other development and federal transportation funds are spent, these groups and and public investment. These CIPs are typically prepared their representatives also have the most contact with MDOT as part of the annual budget process, typically three to and can serve as a conduit for input to the state. A consistent, four months prior to the beginning of the fiscal year. These reasonable and effective project nomination process and plans may include larger construction projects, like new communication mechanism between the Rural Task Forces jails or governmental office buildings, which will likely and other public agencies, including counties, townships, be the result of more significant conversation and often planning commissions, parks and recreation commissions, reviewed in the context of the broader issues of financing advocacy groups, and the media could help to ensure that all and land use planning. Often, these projects come with affected stakeholders have the information needed to provide transportation impacts and offer opportunities to coordinate input and share with their constituents. To improve outreach transportation improvements with public investments.

12 State Transportation Plans

The Michigan Transportation Plan where population, employment, tourism, transportation, and Moving Michigan Forward—2005-2030 is the overarching other economically important activities are concentrated. Michigan Department of Transportation (MDOT) policy document and also the state long range transportation plan. MDOT State Transportation The Plan contains an overview of the trends and challenges Improvement Plan 2014 – 2017 facing Michigan today with references to many other more The State Transportation Improvement Plan (STIP) is technical documents, and sets forth goals and strategies for a compilation of all transportation projects that will managing the transportation network and related financial be authorized for funding in fiscal years 2014 – 2017. decisions. Overall, the current policy is to identify and focus The STIP document lists only projects outside of the on the corridors of highest significance at the state, regional Metropolitan Area Boundaries. Some portion of the and local levels. A listing of State and regional corridors document contains information about how the STIP are identified in the document, including the transportation is developed; much of the balance of the Plan is in crossings between the U.S. and Canada. The M-72 Corridor spreadsheet format listing counties and projects. In the through Traverse City is identified as a corridor of significance TC – TALUS area, the STIP includes Reconstruction of at the statewide level as an “activity center” which is defined US-31 from Three Mile Road to Holiday Hills Road at an as a place, from the perspective of the State of Michigan, estimated cost of $9,311,000 (underway in June 2014).

13 ©©Roads & Highways

The primary mode of transportation in carry traffic to and from southwestern The asset management process Northwest Michigan is the automobile: Michigan, and US-127 provides access includes inventory, scenario evaluation, residents’ and visitors’ access to from south-. US-131 is and action that results in selecting homes, businesses, schools, recreation the closest freeway facility ending just the best method for identifying, opportunities, services, places of south of the Grand Traverse / Wexford prioritizing, and implementing road employment, shopping centers, and County line. M-72 and M-37 also construction projects. Ultimately, asset more is dependent on an extensive provide access to the Grand Traverse management is a planning tool that network of roads and highways. Region, M-22 carries traffic to and is used by transportation agencies to from the , M-32 and make the most efficient use of public Existing Road Network M-66 provide access to Charlevoix. resources for the purposes of improving Within the region, there are about road infrastructure in a community. 2,300 miles of primary roads, along Asset Management, with over 6500 miles of local roads Maintenance, & Road Much of the region’s road network that are maintained primarily by county Improvements is addressed by county-wide asset road commissions and city or village A critical component of road and management processes that are governments. Traffic counts indicate highway infrastructure is the on-going conducted in partnership with the that travelers from within and outside maintenance of the existing road surface. Networks Northwest, MDOT, and county the region travel over 3,000,000 To plan for and manage needed road road commissions. Asset management is miles annually on these roads. surface maintenance, communities also conducted on a city and village level throughout the region engage in a by local staff and stakeholders. Each Highway access from outside the area program known as “asset management,” year, Networks Northwest, MDOT, road is provided by a number of routes. a process for collecting surface condition commissions, and municipalities survey Interstate Route 75 (I-75) only touches data about the existing road network the condition of all arterial and collector a small portion of Emmet County, but and managing pavement conditions roads in the region that are eligible for serves as a primary link to southeast based on strategic goals outlined by federal aid dollars using the Pavement Michigan. US Routes 31 and 131 the MDOT and local road agencies. Surface Evaluation and Rating (PASER)

14 system. PASER is a subjective, visual rating process that assigns a value to a road segment based on its condition at the time of the rating. Based on that evaluation, maps and comparative tables are generated by county. Asset Management provides the primary input 2,266 6,566 into annual maintenance plans for the road commissions, cities that manage TT PRIMARY ROAD MILES TT LOCAL ROAD MILES roads under Act 51, and MDOT. In 2013, I RTT II I RTT II Networks Northwest staff coordinated the rating of over 2,700 miles of federal- aid-eligible roads in Northwest Michigan. Regionally, 46% of roads were rated “good” or “fair;” 31% were rated “poor.”

Congestion & Road 3,114,178 Capacities Northwest Michigan’s most recognized VEHICLE MILES TRAVELED I RTT II and discussed transportation issue is congestion, which is caused by a number of contributing factors, including the region’s geography and seasonality issues. Some of the region’s abundant water resources – including many large PRIMARY ROAD LOCAL ROAD VEHICLE MILES inland lakes that each provide a signature COUNTY identity for their respective communities MILES MILES TRAVELED, 2010 – limit connectivity, particularly in communities near Lake Michigan, Antrim 210.43 663.51 258,669 where traffic must be channeled into narrow areas between Lake Michigan and the inland lakes. In addition to Benzie 180.25 445.75 209,002 geography, a growing population in a region dependent on private vehicles for the majority of transportation needs Charlevoix 184.47 529.26 240,120 means that daily errand and commute trip times are increasing in the region. Tourism, too, plays a role in congestion, Emmet 256.97 615.01 339,966 as visitors travel, largely by car, to travel throughout the region on roads that are designed for a smaller year-round Grand Traverse 318.19 940.69 859,068 population. As the population, tourism, and related traffic grow in the region, traffic congestion will continue to be a Kalkaska 230.38 620.62 217,862 central issue in transportation planning.

There are two kinds of traffic congestion: Leelanau 177.16 443.39 237,275 recurring and non-recurring. Non- recurring congestion is caused from things such as an accident, construction, Manistee 284.82 809.05 230,346 or inclement weather. Non-recurring traffic congestion, while a major contributor to traffic delays, is usually Missaukee 222.46 632.93 146,653 not a focus of transportation planning efforts. Recurring traffic congestion is due to over capacity, or traffic volumes Wexford 201.03 866.57 375,217 higher than those for which the road is designed, that causes predictable traffic

15 ANNUAL MILES TRAVELED BY COUNTY (millions)

ANTRIM 259 MILLION

BENZIE 209 MILLION

CHARLEVOIX 240 MILLION

EMMET 340 MILLION

GRAND TRAVERSE 859 MILLION

KALKASKA 217 MILLION

LEELANAU 237 MILLION

MANISTEE 230 MILLION

MISSAUKEE 147 MILLION

WEXFORD 375 MILLION

0 100 200 300 400 500 600 700 800 900 1,000

Source: Michigan Department of Transportation Highways Performance Monitoring System (HPMS) 2013

ROAD ASSESSMENT

ANTRIM Good BENZIE Fair CHARLEVOIX EMMET Poor GRAND TRAVERSE KALKASKA LEELANAU MANISTEE MISSAUKEE WEXFORD 0 20 40 60 80 100

Source: Networks Northwest, 2014

16 delays. Most recurring traffic congestion and South Airport Road. Major north- the primary commercial corridor occurs in urban areas, but as the region south routes include M-22, Division is also a state highway, and in the continues its growth, predictable traffic Street (US-31, M-37), Cass Road/ busy summer season, high traffic congestion will be a major factor in Street, Woodmere Street/ Barlow Street, volumes can affect local businesses. effective transportation planning. The Garfield Road, Center Road (M-37) and A challenge to addressing summer current SLRP names three Northwest Three Mile Road. In the Petoskey area, peak traffic congestion is whether to Lower Michigan road corridors as significant congestion is experienced on expand capacity to meet a relatively “highest significance” in regard to US-31, US-131 and portions of M-119. short period of high demand. traffic congestion management: US- All of these roads are very near or above 131 (Wexford, Kalkaska, Antrim, their design capacity, particularly during Congestion has driven extensive Charlevoix, and Emmet counties), the busy summer months. Additionally, and heated discussions on potential M-72 (Antrim, Grand Traverse, and many of the roadways were developed transportation improvements that may Kalkaska counties) and US-31(Manistee, with uncontrolled access, resulting address congestion, such as road Benzie, Grand Traverse, Antrim, in multiple driveways onto the road, widening to accommodate additional Charlevoix and Emmet counties). which can cause traffic backups and traffic and bypasses that would route safety concerns. Generally speaking, through traffic around cities or villages For the most part in the region, the traffic crashes on these corridors on higher-speed roads. Bypasses road network is adequate to carry are predominately rear-end crashes have been discussed, and in some traffic volumes through most months that involve turning movements. cases implemented, in communities of the year; however, there are including Traverse City, Petoskey, selected areas of congestion during Other areas of traffic congestion Cadillac, Manton, and Kalkaska. the summer, particularly in the urban include the regional Lake Michigan areas of Traverse City and Petoskey. shoreline communities of Manistee, In Traverse City and Petoskey, bypass Frankfort, Empire, Leland, Northport, discussions have been heated and In the Traverse City area, east-west Suttons Bay, Elk Rapids and Charlevoix. controversial. Discussions around a routes carry the greatest volumes of For these areas in particular, the planned connection of Hartman and traffic. Major east-west routes include summer tourist season brings traffic Hammond Roads, crossing over the Grandview Parkway (US-31, M-72, volumes significantly higher than Boardman River, began in the early M-37), Eighth Street/Fourteenth Street average. In some communities, 1990s in order to address the existing

Transportation Planning Resources

A Citizen’s Guide to Transportation Planning A Citizen’s Guide to Transportation Planning, developed by Networks Northwest and regularly updated, explains the transportation planning process and transportation issues in Northwest Michigan. The guide includes glossaries, contact information, regional transportation-related statistics, and other information to help citizens get involved in the transportation planning process.

Asset Management Reports Assess Management Reports for years 2006 – 2013, detailing road conditions and maintenance priorities for each county in the region, are available at the Networks Northwest Transportation Asset Management web page.

The Grand Vision The Grand Vision provides a vision for growth and development over the next 50 years. The major reports and documents produced as part of the Grand Vision provide a comprehensive set of transportation recommendations and land use analyses to guide future decisions in Antrim, Benzie, Grand Traverse, Kalkaska, Leelanau, and Wexford counties. Detailed transportation reports are available online at www.thegrandvision.org.

17 2013 PASER - NORTHWEST REGION

Total Miles Surveyed - 2,712

Surface Condition Poor (34%) Charlevoix Fair (44%) Good (22%) County Boundaries Emmet

0 10 20 Miles

Charlevoix M:\GIS\Asset Management\2013\2013_RegionPASERValues.mxd

Antrim Leelanau

N

Kalkaska Grand Traverse

Missaukee

Wexford

Manistee

18 Cass Road Bridge in the Boardman government, non-profits and the private proposed project was expected to River Valley, which was classified as sector, shaped The Grand Vision, alleviate traffic congestion, public being critically deficient by the Michigan which studied residents’ preferences opposition grew on the basis that it Critical Bridge Committee in 1988 and for growth and its impacts on would destroy high quality farmland, slated for replacement based on funding transportation needs. The Grand Vision induce sprawl, and damage downtown availability. The bridge project advanced is a comprehensive analysis of land businesses. MDOT formally cancelled through several stages of planning and use and transportation, as well as the the project in 2002, but at the same permitting, until 2003 when opposition intertwined issues of housing, energy, time, offered to pay for, but not lead, a to the project, based on potential natural resources, and food and farming. locally-crafted transportation plan. In environmental and land use impacts, addition, MDOT pledged to upgrade turn grew through grass roots activities. The Petoskey area addressed congestion lanes, traffic signals, and intersections The Grand Traverse County Road needs in similar discussions around along the state’s aging US-31. In 2006, Commission paused the permit process the possible development of a bypass, the state commissioned the Petoskey in 2004, and federal funds designated beginning in the 1970s. $28 million was Area Transportation Study, to determine for the project were re-appropriated by authorized for a bypass project in 1987. how best to design Petoskey’s roads U.S. Congress to be used for a long-term Ultimately, the proposal involved a $70 and other transportation systems. The planning process, subsequently entitled million, 9.5 mile-long bypass through 2007 report, which drew on comments The Grand Vision. Over three years, farmland outside the city, mainly to made during a year of public meetings, 15,000 citizens got involved and voiced ease summertime congestion and suggested widening some existing their opinions through surveys and a projected long-term traffic growth on streets and building two new ones. series of public workshops. This input, US-31, which runs along Petoskey’s Together, the widened and new roads with unparalleled collaboration between Lake Michigan shoreline. While the would form a connector that would

Levels of Service

Transportation planners use a benchmark called Level of Service to measure the volume of traffic to the design capacity of the road. The following is a description of the Levels of Service and the volume to capacity ratios:

Level of Volume to Definition Service Capacity Ratios

A Conditions of free flow; speed is controlled by driver’s desires, speed limits or physical roadway conditions 0.0 to 0.34

Conditions of stable flow; operating speeds beginning to be restricted; little 0.35 to 0.50 B or no restrictions on maneuverability from other vehicles

Conditions of stable flow; speeds and maneuverability more closely restricted; 0.51 to 0.74 C occasional backups behind left-turning vehicles at intersections

Conditions approach unstable flow; tolerable speeds can be maintained but temporary restrictions may D cause extensive delays; little freedom to maneuver; comfort and convenience low; some motorists at 0.75 to 0.89 intersections, especially motorists making left turns, may wait through one or more signal changes

Conditions approach capacity; unstable flow with stoppages of 0.90 to 0.99 E momentary duration; maneuverability severely limited

F Forced flow conditions; stoppages for long periods; low operating speeds Greater than 1.00

19 congestion requires careful study and participation from all stakeholders.

State Highways & Commercial Corridors Many of the region’s most prominent 109 COMMERCIALCORRIDORS roads are state highways. Located within the region’s growth and investment areas are a number of commercial corridors, which are places with significant concentrations of both commercial and residential development that act as commercial, service, and employment COMMERCIAL CORRIDORS centers for surrounding communities. LOCATED ALONG These commercial corridors may include 60 STATE TRUNKLINES downtown areas or strip commercial development along state highways or arterials, and are often the most visible portion of the region’s communities. Many act as visual gateways into the community, creating visitors’ first impressions and expectations of the community. These corridors also MILES OF COMMERCIAL carry large volumes of both local CORRIDORS and regional traffic and are heavily 114 influenced by the region’s transportation network. 60% of these corridors are Networks Northwest, 2014 located along state trunklines.

Recognizing the importance of steer US-31 and US-131 through-traffic “Manton bypass” in 2003, both of which commercial corridors to the economies away from Petoskey’s badly congested are actually just segments of a long of individual communities and downtown and through the Emmet freeway extension from south of Cadillac the region as a whole, Networks County countryside surrounding the to north of Manton. A northeasterly Northwest conducted a commercial city. The Study also endorses new continuation of the US-131 freeway past corridor inventory (CCI) in 2014. Local traffic signals, more controlled access Fife Lake toward Kalkaska and beyond governments were asked to identify to busy thoroughfares, more sidewalks had been studied for several years, commercial corridors and the assets and bike paths, and a modest new but at present, MDOT has shelved all within these corridors. The resulting public transit system. The Petoskey Area `plans for a US-131 freeway north of the inventory detailed infrastructure assets, Local Roads Committee has met semi- bridge between Manton population, housing, employment, annually to identify projects that enhance and Fife Lake, due to traffic volume and and other data for each of the 109 the local transportation network. The environmental considerations. Safety commercial corridors identified by most recent list, produced in 2013, and capacity improvements to the local governments within the region’s includes a series of recommendations corridor have been promised, however. growth and investment areas. The for transit, non-motorized CCI indicated that over two-thirds of transportation, access management, Bypass discussions encompass the region’s jobs are located within a and roadway improvement projects. a number of the region’s largest quarter-mile of one of these commercial transportation issues: congestion and corridors; and that nearly a third of While less controversial, the extension traffic volumes; the impacts of traffic the region’s population lives within of the US-131 Freeway from Cadillac and transportation infrastructure on land that radius. Population, housing, and to Petoskey has been a long standing use, business, and the environment; employment densities in and around proposal that had a strong advocacy and the varying roles of state, local, and commercial corridors are higher, on group, but has not historically ranked federal partners in the transportation average, than densities regionwide. high on the MDOT list of projects. improvement process. There are Major upgrades to the route of US- many ways to deal with congestion; Despite these economic and population 131 have been completed in Wexford however, developing consensus of impacts, commercial corridors County, including the completion of the best approaches to addressing struggle with a variety of challenges, the “Cadillac bypass” in 2001 and the including transportation, design, and

20 R TRANSPORTATION COSTS R R $ I I R TRR 16,076 I R TI

57% I T 73% I T R RTI T I T I T I I TRRTTI TRRTTI

development-related issues. High challenges facing these commercial or crashes in Northwest Lower traffic counts in these corridors can act corridors is their location along busy Michigan, not including deer/car as both a blessing and a curse: while roads. Businesses and homes in and collisions. These crashes resulted in high traffic volume renders businesses around these corridors experience 119 fatalities and over 4300 injuries. more visible, high traffic volumes and significant business and safety impacts speeds create challenges in walking related to the flow of traffic, including In rural areas of the region, the to or accessing businesses, and can unsafe pedestrian environments, high predominant crash type involved a create an unwelcoming environment traffic speeds, and poorly-planned fixed object, such as trees or fences. for customers and pedestrians. access management that causes safety These crashes are often influenced and congestion concerns. However, by factors such as lighting, weather, As many of these areas are the gateways decisions about transportation funding and other driving conditions. In urban into community core areas, their and improvements aren’t always and congested areas, however, design and functionality contribute made in the context of these related including Grand Traverse and Emmet to the community’s image and sense land use, growth, and investment counties, rear-end crashes make of place. Yet many corridors lack a discussions. When transportation up the largest proportion of traffic cohesive design, resulting in traffic planning fails to account for land use crashes, accounting for over a third hazards and a disjointed development impacts or economic development of all accidents. In many cases, high pattern. Those areas leading into needs, communities may experience degrees of congestion and poor access downtowns may also suffer from added congestion, safety issues, and management contribute to the crash. disinvestment, declining property increased construction or maintenance values, and blight, thereby negatively costs which in turn can have negative Other key safety issues facing impacting the local sense of place. impacts on communities’ abilities to transportation planning in Northwest attract and manage new growth and Michigan include issues such as: Commercial corridors present important investment. Many communities struggle opportunities for growth, development, to balance the desire for safe, efficient • Intersection/ Road departure safety; and redevelopment, with important traffic flow with pedestrian improvements assets like sewer and water services, and improved corridor aesthetics • Young/Elder driving groups; properties with high visibility, and a along these important transportation proximity to a variety of service and routes. Additionally, state transportation • Altering negative driver behavior; residential areas. Yet, new development agencies play an enormous role in often occurs outside of these areas. growth and development along these • Highway work zones; Infrastructure costs can discourage corridors, particularly as they relate to new investment, while the costs and pedestrian improvements and traffic flow. • Snowmobile crashes; risks involved in developing blighted or potentially contaminated areas can Road Safety • Seatbelt usage; discourage other developers, and zoning Transportation safety for users, may act as a barrier for some types of passengers, and pedestrians • Deer accidents; development or redevelopment and must always be on the forefront of result in poor functionality and design. transportation planning. In 2013, there • Pedestrian and bicycle safety. However, one of the most fundamental were 18,365 automobile accidents,

21 One notable safety issue often raised challenges for communities working semi-trucks is transferred to smaller in communities that feature commercial to address this safety issue locally. trucks for final local delivery. In other corridors along state trunklines is that cases, deliveries are made during off- of pedestrian safety. High volumes of Freight Routes peak hours. There are, nonetheless, traffic along these roadways, combined The large majority of the nation’s times when semi-trucks are travelling in with relatively high traffic speeds, products is delivered from producers urban areas during peak traffic hours. create safety concerns for pedestrian to retailers for purchase by consumers Major travel routes for truck traffic crossings across the trunkline. In some by trucks through the existing road need roads designed to accommodate cases, these trunklines include high network. Truck traffic typically semi-truck traffic movement including concentrations of hotels, restaurants, represents between 5% - 8% of the turning movements and passing lanes. and other tourism-related assets total traffic volumes, depending upon These routes are essential components along both sides of the road; however, the road. This percentage calculation of the region’s economic activity and access to and from these destinations reflects the presence of semi-truck strength. At times, these design features often lacks safe pedestrian crossings, traffic on the road system, which can seem contrary to pedestrian and discouraging pedestrian activity. The may include trucks associated with a bicycle multi-modal goals. It operates significant role that state transportation freight service operation in the region on a larger scale than personal vehicle stakeholders play in improvements or may be carrying supplies directly travel and can sometimes conflict with to these trunklines can create to commercial or industrial business other transportation mobility issues. operations. In some cases, cargo from

22 Transportation Options outside of private vehicle ownership are limited, however. Transit is reported as the “option of last resort” Access & Equity for individuals that need to get to work. Bus service times rarely coincide with employment schedules, which include Northwest Michigan’s rural character scattered development very early mornings, late evenings, and weekend hours, patterns leave many residents dependent on private vehicles, particularly for those working service jobs. Additionally, leading to higher transportation costs. Long commutes most bus service in the six-county region is demand between the region’s more “affordable” housing and its response, or dial-a-ride, which leaves no assurance that employment centers create added transportation costs for any rider can get to work or to an appointment on time. those that “drive til they qualify” - that is, those who move far from employment centers in search of cheaper homes. When faced with limitations in respect to private vehicle In the Traverse City/Cadillac micropolitan areas, because of ownership and transit access, many individuals in the long travel distances between homes and work, the annual region bike or walk to work and other places, which cost of transportation can exceed $15,000. When considered presents different challenges. Most bike trails are designed in the context of other housing costs, such as heating and for recreation, rather than for commuters, and may not utilities, the costs of transportation for an average regional connect with or provide routes to important destinations household leave little left in the budget for other basic needs such as employment or shopping centers. Many jobs are like housing, food, and medical expenses. These untenable located in high-traffic commercial areas—often without financial situations can result in crisis situations, with many sidewalks—that present major obstacles and safety hazards lower-income residents forced to choose between traveling to when walking or crossing a street. These difficulties are work, paying utility bills, making monthly mortgage payments compounded by winter weather, when snow may make or rent, purchasing necessities like food, or making needed some walking or biking routes impassable. And, because repairs to the home. Transportation costs prevent many road design may not accommodate those with disabilities, of those living in or near poverty from owning or driving a disabled individuals experience more difficulties in accessing vehicle. Many who do own cars—on which they depend for non-motorized transportation pathways. Biking or walking employment and other daily necessities—report that they is likely not an option at all for those that live long distances are “one repair bill away” from not having transportation, away from their jobs or other needed destinations. which, in the absence of effective and timely transit, can affect their ability to get to work and maintain employment.

23 Opportunities: Roads & Highways

The region’s road and highway network is impacted by and focuses attention for either reducing traffic or increasing a wide range of interconnected factors. Addressing its design capacity in those sections with an “E” or an “F” grade, needs therefore requires a comprehensive approach which indicate safety and capacity transportation gaps. that accounts for all factors, including existing needs, future population trends and development patterns. The best method for preserving as much roadway capacity as possible is to reduce the number of driveways on the roadway The Grand Vision and the Petoskey Area-Wide Transportation and provide additional inter-parcel connections to reduce Study provide important examples of how to determine conflicting turning movements along the corridor—an approach the most effective course of action for transportation known as access management. Access Management uses infrastructure improvements. They set the stage for a a variety of proven traffic techniques designed to effectively different approach to congestion management in core control driveways and intersections to maintain safety at a urban areas, by considering capacity issues in the context roadway’s full traffic carrying capacity. Communities can of land development policies, mode shift incentives – such develop access management plans that can integrate zoning as funneling some traffic into transit or non-motorized approvals for development projects and public capital

Communities can conduct gap analysis, which measures traffic volume data with road design capacity to determine the Level of Service of a particular corridor or section or road.

means of transportation—and travel demand strategies, improvement plans to manage the corridor access. The access as well as in some cases, areas where safety and capacity management plan should be developed and implemented as improvements are needed. This methodology focuses soon as possible, since such the opportunities for changes investments on strategic and targeted improvements in come quickly, should be well planned to avoid undue time key intersections and areas of high crash incidence, rather delays and burdens on private development projects, and than the “business as usual” approach of road widening. the changes are incremental in nature and take years or even decades to fully develop. Implementing an access management To assess road needs, communities can conduct gap program will encourage smooth and safe traffic flow on analysis, which measures traffic volume data with road community roadways and can help communities avoid some of design capacity to determine the Level of Service of a the traffic problems caused by uncontrolled strip development. particular corridor or section or road. Traffic volume data is measured throughout the region in varying degrees, and Safety improvements such as rumble strips, luminescent communities can determine those areas in which additional paints, the ability to view signs more easily, continuous traffic volume data may be necessary. For state trunklines, safety education, and improving crash data to identify areas capacity information is available from MDOT. For city and of needed improvement are current efforts to minimize county roads, the capacity for each segment is calculated transportation related accidents. Additionally, the prevalence based on a specific methodology prescribed in the Highway of rear-end type accidents at intersections can be effectively Capacity Manual, which is published by the Transportation mitigated by providing larger and more visible advance Research Board. The methodology is different for the three warning signs. This project type can easily be implemented subcategories of road applicable to Northwest Michigan: because of its low cost and lack of right-of-way acquisition. rural multilane highways; rural two-lane highways; and arterials. Within gap analysis, traffic volume is divided by Another intersection safety mitigation technique is to add design capacity to calculate the Volume to Capacity Ratio, channelizing lanes to provide turning traffic an opportunity which is an indicator of how well the road functions. This leave the through traffic lanes when slowing / stopping Ratio is then grouped into ranges that indicate operational to make a turning maneuver. Intersections that are near characteristics of the road, called Level of Service. The Level capacity and do not have appropriate right turn and/ of Service provides an understandable “grade” for roadway or left turn lanes tend to have conflicts between through

24 traffic and turning traffic in the same direction of travel the separation of land uses, resulting in the development resulting in a prevalence of rear-end type accidents. of new homes built in neighborhoods that are not connected to commercial areas, employment centers, or Accidents on curved roadway segments with high schools—leaving many residents dependent on a vehicle. crash concentrations can be mitigated by installing Development limitations or complexities in cities or villages centerline and shoulder rumble strips. These can restrict the amount or affordability of housing in these relatively low cost mitigation techniques can be areas, leading to shortages of affordable housing in urban implemented without acquiring new right-of-way. areas. These affordable housing shortages force many families and individuals to “drive til they qualify,” that is, Certain segments of roadway currently have excess capacity: commute farther into the countryside where homes are that is, the traffic volumes on the road are significantly cheaper. Planning and zoning for new housing, or higher- lower than the volumes for which the road was designed. density housing, in areas close to jobs, services, and When roads are projected to retain this excess capacity, shopping can create more opportunities for new residential communities and stakeholders may consider “road diets.” development in locations with lower transportation Road diets involve reducing the number of lanes on these costs – while also reducing traffic and congestion. road segments, in order to provide room for streetscape and multi-modal facilities, such as sidewalks, bike lanes, or Communities can also work to develop sidewalk or trail transit stops, within the road right-of-way without causing connections between residential neighborhoods and future capacity concerns. This is especially true for road commercial areas or services, in order to provide alternative

Road diets involve reducing the number of lanes on road segments, in order to provide room for streetscape and multi-modal facilities such as sidewalks, bike lanes, or transit stops.

segments that have adjacent land-use patterns of commercial transportation options for residents. Improving pedestrian and and residential development that can benefit from additional bicyclist safety along connecting routes can also encourage multi-modal facilities. Aesthetic improvements can also more residents to walk or bike, reducing their dependence be implemented to improve the design of the corridor. on a car. In rural, auto-dependent areas, transit changes that offer greater connectivity and more efficient travel times may For segments of roadway that are going to function make transit more accessible and realistic for rural residents as key connections between population centers and that are currently dependent solely on a private vehicle. projected to be over-capacity, communities might consider adding through lanes. These capacity improvement Transportation and land use planning should consider locations projects represent major transportation investments. for freight terminals and businesses with freight service. Locations served by rail, air service, sea ports and major roads Signal Optimization projects seek to keep the signal timing are ideal. Space may need to be preserved through land use programs current with traffic patterns and make the most planning to minimize future conflicts and to allow for future efficient use of the traffic signal. These projects require expansion and additional economic development. Planning detailed traffic counts and turning movement studies to be efforts should also consider the impact on those roads carrying completed and used by qualified traffic operations engineers. semi-truck traffic. Specialized models can predict the impact of freight on proposed developments and future road conditions. Planning and zoning policies contribute in many ways to high transportation costs. Zoning regulations often require

25 ©©Transit

Transportation and mobility are vital to and needs. Layered onto federal operates a fixed route system in greater regional economic activity and personal funding sources are state and local Traverse City area with connections well-being, connecting people to jobs, governments, transportation providers, to Acme, Kingsley, and Interlochen in education, health care, and community. and supporting social services. The Grand Traverse County, and Empire and Alternative transportation options such person looking for a ride and the Suttons Bay in Leelanau County. The as public transit provide access to all organizations offering rides can get Benzie Transportation Authority (Benzie types of riders—commuters, seniors, lost in the complexity of navigating this Bus) also recently added a fixed route the disabled, visitors, and students— network of often overlapping programs. from Thompsonville to Interlochen, and allow residents and tourists to with connections from Frankfort, contribute economically to the region. Existing Transit Services which connects to the BATA system. The services provided by public transit Northwest Michigan is served by eight agencies spur economic activity, lessen organizations providing transit services Ridership in each county varies widely, traffic congestion and emissions, in nine of the ten counties. Services from about 40,000 riders annually in and add value to our quality of life. include both “fixed-route” service—in Antrim County to a high of about 575,000 which a bus arrives at known stops riders annually in Grand Traverse Transit access is an important factor in throughout the day to take riders County. Disabled riders make up about a the struggle for equal opportunity among along a regular route—and “dial-a- quarter of transit users, and about 11% those with disabilities, lower-income ride,” or demand-response service, of transit riders are seniors. Ridership households, and seniors. Because our which allows residents to call the increases in the summer, with additional nation’s investments in transportation transit agency to be picked up at one passengers using the fixed-route village infrastructure have disproportionately location and taken to another. The Bay connector services in particular. favored cars and highways, those who Area Transportation Authority (BATA) cannot afford cars or do not drive cars often lack viable transportation options. Affordable and reliable transportation EXISTING TRANSIT SERVICES allows people with disabilities, seniors, and those with limited resources COUNTY ORGANIZATION FIXED ROUTE DIAL-A-RIDE access to important opportunities ACT – Antrim County in education, employment, health Antrim Transportation  care, housing, and community life.

Benzie Benzie Bus Thompsonville - Inter- However, transit access in Northwest lochen  Michigan has historically been limited. Transit agencies face the challenges of Charlevoix County Transit Charlevoix System serving permanent residents and visitors  throughout a region that is generally low Friendship Center in density and large in area, requiring Emmet (Commission on Aging)  long bus routes to connect the activity Straits Regional Ride centers. Other significant challenges Traverse City area Grand Traverse BATA – Bay Area Links to Benzie and include serving high volumes of seasonal Transportation Authority Leelanau  tourists who come to the region; providing service with travel times that Kalkaska KAT - Kalkaska Area Transit enable reasonable commutes for the  region’s workers, and ensuring financial BATA – Bay Area Empire, Suttons Bay to sustainability by increasing revenues and Leelanau Transportation Authority Traverse City  controlling operating costs. In addition, the ability to provide a coordinated, Manistee County Manistee efficient transportation system Transportation  requires great expertise in navigating the complicated network of federal Medical Transport provided by Missaukee CWTA transportation funding sources and  rules, and applying this understanding CWTA – Cadillac Wexford Trans- to the web of community partners Wexford portation Authority  26 Transit Plans region expand their target population to commuters, which are the largest potential market for increasing bus ridership. and Studies The report states that evidence suggests commuters will only use fixed route bus service that offers a fast, efficient, Emmet County Transportation reliable transportation choice, and offered insight into how Coordination Study (2005) to effectively increase and improve public transit services. The included recommendations for an enhanced system which would include “around town” demand response Grand Vision Mobility Management (dial-a-ride) systems combined with scheduled out-county and Coordination Strategies flexible routes. Recommendations should be considered a Prepared under the auspices of the Michigan Livable small scale start-up system, with the anticipation that the Communities Demonstration Project and prepared by Smart system will grow as ridership and opportunities increase. Growth America for the Grand Traverse region, the Grand Also in Emmet County, a group of representatives from Vision Mobility Management plan provides a series of human service agencies, business, groups serving seniors recommendations and implementation strategies that can and persons with disabilities, and other community leaders serve as a model for the whole region. The report included called Friends Enhancing Emmet Transit - FEET are working specific actions the region can take around the following to build Emmet Transit, a countywide transportation 5 transportation priorities, as identified by stakeholders: system that would provide limited fixed route and “dial-a- ride” bus service throughout the county. FEET prepared 1. Improve Coordination between transportation Proposed Public Transit Service Options for Emmet County, providers (public and private) which recommended an expanded system financed 2. Integrate transit with the tourism economy through a proposed millage based on using the current 3. Consider water transportation public transit provider, Straits Regional ride, to provide 4. Integrate transportation with regional planning “around town” demand response (dial-a-ride) service 5. Coordinate and integrate human combined with scheduled out-county flexible routes. services transportation into a broader mobility management effort Expanding Transportation Choices in the Grand Traverse Region, Connecting The plan’s recommendations and strategies are Villages and Towns with Public Transit incorporated in the Framework for Transportation in The Michigan Land Use Institute published this 2009 study Northwest Michigan. The complete Mobility Management which suggests the public transit services provided in the report is available online at www.nwm.org/rpi.

25% 11% TRIT TRIT R R R I R R

1.2 MILLION TRIT R 27 I RTT II Barriers to Transit Use particularly for the many commuters this service from meeting the needs While transit agencies and advocates and others that must frequently of commuters. For example, Kalkaska have made important strides in cross county lines for employment, offers round trip service to Traverse City improving transportation services shopping, or medical appointments. three times a day, three days a week. region-wide, a number of factors persist Without a coordinated fare system or While this could be effective for meeting in discouraging new transit ridership. schedules, transfers between counties many non-emergency medical (NEMT) can be costly and time-consuming. needs, it will not meet commuter needs. Awareness, familiarity, and comfort with transit systems is important in Further, input heard throughout the Bus connections to destinations outside increasing transit ridership. Using Framework for Our Future process the region are provided by Indian Trails. transit can be intimidating for many first indicated that bus service times The Grand Traverse region is served time riders – especially the elderly and rarely coincide with employment by Indian Trails (Trailways) Schedule people with disabilities who may need schedules, which include very 14847 between Petoskey and Grand assistance in accessing the system. early mornings, late evenings, and Rapids, one round trip per day, seven Other would-be riders may struggle weekend hours, particularly for those days a week. The bus is also an Amtrak to navigate the system or routes, working service jobs. Additionally, the Thruway Schedule 85328. No passenger while still others may be discouraged lengthy travel times associated with rail exists in the Grand Traverse region. from using transit due to various demand response services leaves no stigmas associated with bus usage. assurance that any rider can get to The Indian Trails bus route offers one work or to an appointment on time. trip north and one trip south every In addition to these barriers, the day serving the following communities practicalities of using transit in rural Regional & Intercity included in the Grand Vision: Cadillac, areas prevent many workers and others Bus Service Charlevoix, Manton, Kingsley, and from using transit for daily needs. Currently, most public transportation Traverse City. Riders have less than Because much of the region is served by in the region stops at county lines, an hour wait for a transfer in Grand demand-response transit, travel times and the convenience of transferring Rapids to travel to Chicago, Kalamazoo, are generally lengthy. Poor connections to the adjacent county service varies Lansing, Flint, and Detroit. All coaches between communities and across greatly. In some cases direct service is are wheelchair accessible. In the county boundaries also act as barriers, offered, but limited resources prevent remainder of the state, Indian Trails

2013 TRANSIT AGENCY RIDERSHIP REPORT ELDERLY PERSONS W/ ELDERLY W/ TOTAL ELDERLY AGENCY COUNTY TOTAL PASSENGERS PASSENGERS DISABILITIES DISABILITIES & DISABLED

Friendship Center 23,162 8,320 6,516 6,243 21,079 of Emmet County Emmet

Missaukee County Missaukee 1,200 504 144 552 1,200

Antrim County 39,435 2,749 15,873 0 18,622 Transportation Antrim Bay Area Transportation Leelanau & 575,217 43,001 129,172 24,128 196,301 Authority Grand Traverse Benzie Transportation Benzie 89,382 22,076 23,401 1,603 47,080 Authority

Cadillac/Wexford 119,228 13,908 44,864 18,111 76,883 Transit Authority Wexford

Charlevoix County 117,829 24,376 29,814 8,882 63,072 Public Transportation Charlevoix

Kalkaska Public 103,761 8,040 4,126 4,805 16,971 Transit Authority Kalkaska

Manistee County 136,375 8,633 42,040 3,745 54,418 Transportation Inc. Manistee

Source: MDOT, Public Transportation Management System Performance Indicators Report 28 operates four daily trips between vary widely in terms of the level of accessible for both riders and drivers, Chicago and Flint, with less frequent information provided; and all transit with easily-navigated paths to and service throughout northern Michigan. websites lack real time bus tracking and from the bus stop. For ideal bus stop Riders can transfer onto Amtrak, other other important elements. On all the placement, this infrastructure should be Indian Trails buses or Greyhound websites, information about regional coordinated with development reviews buses in Grand Rapids to travel transit options is inconsistent and and approvals, road connectivity, and across Michigan and the country. often lacking.1 In addition, as of 2014, complete streets considerations that none of the region’s transit providers ensure rider safety. However, the lack Transit Infrastructure have implemented Google Transit of coordination between land use & Technology Feed Specification (GTFS), which decisions and transit infrastructure has Technology is essential for both enables agencies to publish transit resulted in commercial development transit riders and providers, in making access data online and allows users to site designs that require buses to drive transit easy to use and in managing access transit information on Google through parking lots to drop off and pick the transportation network. While map applications. Dispatch capacity, up passengers. In many locations, state some of the region’s transit providers too, varies greatly between the transit highways have no bus stop infrastructure are currently working to improve agencies, with dispatch systems ranging and no safe way for passengers to walk technological capabilities, the 2013 from intelligent transportation solutions between the road and the entrance Grand Vision Mobility Management plan, (ITS) software to pen and paper. of the commercial buildings. Driving developed by Smart Growth America, through large parking lots typically identifies a general lack of technological In addition to technology, transit requires causes significant travel time increases capacity as one the weakest elements other supports to enhance access, and also increases safety concerns of the region’s existing transit services. convenience, and safety for riders. For as drivers negotiate unpredictable Transit websites throughout the region instance, bus stops should be easily parking lot traffic and pedestrians.

Opportunities: Transit

Transit agencies, transportation partners, communities, populations, and advocacy organizations. A regional coalition volunteers, advocates, and other stakeholders can engage can come together to advocate service expansion and in a number of strategies to improve the region’s transit pool limited resources that could be directed to provide service, including regional coordination of service, business a transit funding base. From there, partners can consider and intergovernmental partnerships that encourage transit coordinated routes and fare structures between counties to use and interconnection of regional systems, zoning and land help residents efficiently reach important services in nearby use practices that facilitate access to transit and encourage communities. Working with non-public transportation sustainable development, and improved information and providers and other transit providers, such as Indian Trails, public awareness through signage, website enhancements Amtrak, or private transportation services, can create and coordination with tourism-oriented organizations. additional opportunities to offer new or enhanced services.

A regional, coordinated approach to transit service can improve travel times, reduce costs and enhance efficiency for both riders and transit agencies.

A regional, coordinated approach to transit service can Coordinating with different community partners, such as improve travel times, reduce costs, and enhance efficiency human service providers, can also help transit providers for both riders and transit agencies. An important first achieve efficiencies and enhance services. Human service step to achieving greater regional coordination is to form agencies can help to expand services or capacity by coalitions of local governments, tribes, education, business, contributing funds to meet the whole community’s needs. and citizens, agencies that represent transit-dependent Volunteer driver programs represent another approach to

29 meeting human service transportation needs and have the Transit partners can help to raise awareness of service added benefit of providing flexibility to meet the diverse opportunities by implementing region-wide unified branding, needs of different populations. While volunteer driver and messaging on websites, hard copy materials, buses, programs can’t fulfill all such needs, these programs bus stops and advertising will be particularly important can serve an important role in filling gaps in service. for increasing ridership, particularly by tourists. Linking transit service to represents another important Other partnership opportunities include working with opportunity to introduce both visitors and residents to tourism and events industry to identify opportunities for public and/or privately operated mass transit. A trip to expanded service. Events, businesses, and locations or from the airport may be the first time an individual such as festivals, resorts, casinos, and state and national considers using transit, and if the experience is positive it parks attract visitors who are often predisposed to getting will encourage them to try using transit for other trips. around without a car. Connecting these locations with transit can improve visitor experience while reducing Transit works best when supported by good land use, congestion in the region’s busiest attractions. road connectivity, and complete streets: coordinating new development with transit infrastructure needs will To reduce barriers to using transit and promote greater result in improved safety and efficiency. Communities ridership, a number of opportunities exist to introduce new can consider incorporating transit guidance in site plan users to the service. Travel training programs help people review or other relevant zoning policies. Additional needs become comfortable using transit services by improving include improved communications technology that can their knowledge of routes, stop locations, fares, and help residents plan trips while improving the ability of other aspects of fixed route bus service. Travel training transit providers to maximize services and efficiency can include live demonstrations of how to board the bus, pay, and navigate transit schedules and other information Transit organizations have access through the RTF such as web based resources and mobile apps. Many process to secure funding for transit capital expenditures communities around the nation have developed successful such as buses and facilities. However, because these travel training programs through partnerships between transportation sources only fund capital investments, human service agencies and transit providers. Trainings funding for other transit improvements and expanded may be conducted at convenient locations such as senior services will require coordination among many partners centers or during events attended by target populations. to identify grant funding sources or opportunities for partnerships that can enhance cost efficiencies.

30 ©©Non-Motorized Transportation

Trails are pathways that are used Because non-motorized facilities are of Natural Resources, Transportation, recreationally or for transportation an important and desired quality of and Environmental Quality to plan and by a variety of users, including life amenity that enhance recreation acquire trail routes and obtain Federal bicyclists, horseback riders, opportunities and draw new residents and State grants for trail development. snowmobilers, or hikers. – particularly the skilled workforce The Council has been instrumental that drives new economic activity – to in acquiring over one hundred (100) The region boasts over 2,500 miles a community, they are increasingly miles of trail right of way in the 180 of motorized and non-motorized recognized as important community mile, eight (8) county trail system. trails. Motorized trails include those infrastructure and economic that were designed to accommodate development assets. In addition, they TART Trails motorcycles, ORVs or snowmobiles, provide important transportation options TART Trails is a system of 10 trails that while hiking, biking, horseback riding and to the many residents throughout the have been developed in partnership snowshoeing are among uses permitted region that can’t or don’t drive. However, with Grand Traverse County, the on non-motorized trails. Multi-use trails despite their importance to all parts of Grand Traverse County Road are those designed to accommodate the community, they are often treated Commission, MDOT, MDNR, local multiple user types simultaneously, such primarily as recreation assets that citizen advocates, and TART Trails as pedestrians and cyclists. Other trails don’t receive the same level of funding in various stages and phases. The might be designed and designated for priority as other transportation options, trails and trail organizations have been certain uses, such as hiking trails, a bike complicating the development process brought together under the umbrella path, or snowmobile or ORV route. and creating funding hurdles for new trail of Traverse Area Recreation and or sidewalk connections or development. Transportation (TART) Trails, Inc., a In addition to dedicated trails, there non-profit organization that provides are hundreds of miles of sidewalks and Existing Non- management and development services. bike lanes, primarily within developed Motorized System Trails managed by TART include the communities that provide pedestrian The Northwest Michigan region TART Trail; Leelanau Trail; Boardman and bicycle access. These facilities has a long and extensive history of Lake Trail; Buffalo Ridge Trail; Three are particularly important to those who collaboration to develop non-motorized Mile Trail; Nature Education Reserve can’t or don’t drive, due to disability transportation opportunities for the Trails; VASA Pathway; Boardman River or income, and have limited options region. There are over 1,600 miles of Trail; Mall Trail; and US 31 Bike Path to access jobs and services. non-motorized trails and pathways in the Northwest Michigan, all developed Betsie Valley Trail Non-motorized facilities, including both with public private partnerships. The Betsie Valley Trail is 22 miles long trails and sidewalks, provide a unique and extends from Frankfort through opportunity to combine physical activity There are three primary trail networks Elberta and Beulah to Thompsonville in with transportation, linking destinations that have been developed in Benzie County. The Betsie Valley Trail while providing alternatives to motorized partnership with local governments, is owned by the Michigan Department transportation. Close, convenient and road commissions, MDOT, MDNR of Natural Resources (MDNR) and is connected non-motorized pathways and local citizen advocates: Top of managed by the Betsie Valley Trail encourage physical activity, with benefits Michigan Trails in the northern counties; Management Council. The Friends in community health. In addition, non- TART Trails in the Grand Traverse of the Betsie Valley Trail, a non-profit motorized pathways, particularly trails, Region; and the Betsie Valley Trail in corporation formed in 1993, supports have been found to have significant Benzie County. Other trails include the efforts of the MDNR and Benzie economic impacts, generating tourism the Kalkaska Area Recreation and County by providing many volunteer and visitor spending in retail sales, Transportation Trail, the White Pine hours to maintain it. The Friends of the hotel stays, and restaurant visits. Trail, and the North Country Trail. Betsie Valley Trail have worked since Many trail users travel to the region 1988 to plan, design, and build this specifically for access to trails and Top of Michigan Trails trail. There are still some projects to contribute substantially to local and The Top of Michigan Trail Network has be funded and completed, including regional economic activity, and trails been developed through the determined benches and kiosks; parking facilities are also a top community amenity efforts of the Top of Michigan Trails and trailheads, the Trail from M-22 sought by prospective homeowners.2 Council. The Trails Council works to the Elberta Lake Michigan beach, closely with the Michigan Departments and on-going trail maintenance.

31 Kalkaska Area Recreation and include high concentrations of hotels, management, requiring a long-term Transportation Trail restaurants, and other tourism-related community commitment. While the The Kalkaska Area Recreation and assets along both sides of the road; acquisition and development of new Transportation Trail (KART) includes however, access to and from these trails and sidewalks is a lengthy, complex one two-mile trail with 28 landscape destinations often lacks opportunities process, involving significant fundraising beds. 34 engraved stones with donor for safe pedestrian crossings, efforts, once it’s acquired, it must be names helped cover the costs of discouraging pedestrian activity. The managed and maintained in perpetuity. the project, which totaled $255,000. significant role that state transportation These are costs that may or may not be $75,000 was raised locally, and stakeholders play in improvements to adequately planned for in the acquisition $180,000 was provided through the these trunklines can create challenges process; and major improvements on Transportation Enhancement program for communities working to address top of regular maintenance may be of the Michigan Department of this safety issue locally: transportation difficult for communities to fund. Transportation. Additional phases stakeholders struggle to balance the need to efficiently move large volumes Social Equity White Pine Trail of traffic through these important The availability of pedestrian and bicycle The Fred Meijer White Pine Trail is a corridors while safely accommodating facilities is particularly important to linear trail state park that runs 92 miles other users of the system. persons in poverty that have few other between Cadillac to Comstock Park. transportation choices. When faced The trail surface is natural ballast and New Routes & Connectivity with limitations in respect to private hard packed gravel, with 13 miles of While the Northwest Michigan Regional vehicle ownership and transit access, asphalt pavement from Reed City to Big Non-Motorized Strategy (see sidebar, many individuals in the region bike or Rapids. The MDNR currently provides page 29) provides goals and priorities walk to work, school, shopping, and only emergency maintenance services for the region’s non-motorized routes, services. Commuters on the region’s and seeks governmental agencies to the work to be done to detail the routes, non-motorized facilities face a number operate and maintain its linear park trails. secure the property approvals, and of challenges. For instance, while there design, finance and construct new are extensive sidewalk and bike lane North Country Trail trails is complex and lengthy: trail networks in cities and village throughout The North Country National Scenic Trail development often takes 10 or more the community, these facilities are is an 875-mile linear route across the years from concept to construction. often focused in the downtown and state, which is part of a national scenic And, because trail development, by nearby neighborhoods. Typically, trail from New York to North Dakota. The its nature, often crosses government affordable housing is located outside Trail links outstanding scenic, natural, boundaries, the process of planning of these areas. The expansion of recreational, historic, and cultural areas and implementing trail routes and sidewalks by local communities often in seven northern States. The trail connections can encounter procedural includes a cost share requirement enters Michigan near Morenci in the barriers and political difficulties. with adjacent property owners, which southeastern corner of the state and Additionally, trail ownership is often becomes problematic in neighborhoods heads northwest through both urban divided among various agencies: with more affordable housing due to and rural settings toward certified trail portions may be managed by the State of limited homeowner resources and/or segments in the Manistee National Michigan, others might be maintained by because landlords of rental units have Forest, then turning northward through nonprofit organizations, while still others little incentive to pay the additional the Jordan Valley, Wilderness State Park, are owned and maintained by local units cost. Additionally, most bike trails and across the . of government. Increasing the complexity are designed for recreation, rather than of trail management is the variety of for commuters, and may not connect Pedestrian & Bicycle Safety user groups engaged in their use and with or provide routes to important In 2013, there were nearly 300 traffic maintenance: while many trail uses are destinations such as employment or crashes involving pedestrians or compatible, some activities may preclude shopping centers. Many jobs are located bicycles, accounting for 2% of all the use of the trails for other activities. in high-traffic commercial areas—often crashes in Northwest Michigan that year. For instance, mountain biking and hiking without sidewalks—that present major have different trail needs, as do winter obstacles and safety hazards when Pedestrian and bicycle safety are activities like snowshoeing, fat-tire bikes, walking or crossing a street. These particular concerns in downtowns and cross-country skiing, creating some difficulties are compounded by winter and commercial corridors, particularly safety concerns and usage conflicts. weather, when snow may make some those located along state trunklines. walking or biking routes impassable. High volumes of traffic along these Maintenance And, because road design may not roadways, combined with relatively high As in road network maintenance, non- accommodate those with disabilities, traffic speeds, create safety concerns motorized pathway maintenance and disabled individuals experience more for pedestrian crossings across the upkeep is often the most significant difficulties in accessing non-motorized trunkline. In some cases, these roads activity involved in development and transportation pathways. Biking or

32 walking is likely not an option at all for to these classifications. Recreation for capital and operating expense require those that live long distances away from funding sources may not fund projects a long-term approach with multiple their jobs or other needed destinations. perceived as part of the transportation funding sources. Federal and state system, and vice versa. However, funding are available, but these sources Funding there is a greater acknowledgement are highly competitive, require significant Non-motorized transportation facilities of all funding sources of the value of investments of time and effort to secure, are rarely included in transportation non-motorized transportation and and require sizable financial match budgets, and are often regarded trails for transportation, recreation, commitments that may not be available and treated as recreation. Non- and economic development. in increasingly tight local budgets. motorized transportation facilities are generally classified as either Additionally, the significant expense of transportation or recreation, and these infrastructure improvements and funding sources are often exclusive the lack of a long term revenue stream

Northwest Michigan Regional Non-Motorized Strategy

The Networks Northwest has developed a regional non- opportunities for non-motorized transportation, and motorized transportation plan and investment strategy to enjoy more of the region’s natural resources. for the 13 counties in northwest lower Michigan. The strategy includes the ten counties of the Networks The project has gathered information on existing and Northwest region: Emmet, Charlevoix, Antrim, Kalkaska, future trails from each county, township, city and Grand Traverse, Leelanau, Benzie, Manistee, Wexford, village parks and recreation commission, planning and Missaukee, plus Osceola, Lake, and Mason. commission and staff, and board members. Subregional meetings were held with trail organizations, groups, and The Michigan Department of Transportation commissioned stakeholders to review the proposed trail maps for their the effort and uses the plan to prioritize the funding of input. The compiled maps were presented to the public projects. The guiding vision of this project is to connect at subregional trail summits for input and prioritization. existing trails, offering residents and visitors more

33 Opportunities: Non-Motorized Transportation

To develop new non-motorized pathways or connections, or improvement of non-motorized transportation services the region boasts a number of successful models. and facilities. The types of projects, and the accounting In most cases, trails have been developed with an for such projects, varies from road commission to road effective and cooperative coalition of local, regional, commission. These projects are generally not integrated with state, federal government, along with businesses, the overall trail planning in many communities. While not likely general public, and non-profit trail advocacy groups. a significant amount (1% of Grand Traverse County’s MTF allocation was $68,975 for FY 2012), these funds may assist Because financial resources in many of the region’s as a match or part of a larger project. A consistent approach communities—which are often small and rural to consider projects, integrated with overall non-motorized in nature—are limited, the development of non- trail planning, and account for the expenses may help focus motorized transportation facilities often require and expanded the effect of the required 1% allocation. outside support from these community partners. To address non-motorized pathway development or A number of opportunities exist to fund new non-motorized maintenance, volunteer groups can help make the most transportation improvements, including local funding sources of limited budgets; and Northwest Michigan is served such as millages, bonds, or community endowments. Grants, by countless dedicated individuals that donate their however, typically finance the majority of new non-motorized time and resources to improving the region’s natural facilities; and many are provided by state and federal agencies. environment and recreation opportunities. Individuals, Bicycle and pedestrian projects are broadly eligible for most scouting groups, and other service organizations often federal surface transportation funding categories, including partner with communities to address specific maintenance

Trails have been developed with an effective and cooperative coalition of local, regional, state, federal government, along with businesses, the general public, and non-profit trail advocacy groups.

federal aid, highway, transit, safety, and other programs. or improvement needs for trails or other non-motorized SAFETEA-LU (define) also includes funding of certain non- pathways. Other communities work with their sheriff’s motorized projects, while the Transportation Enhancement departments to obtain assistance from jail crews to (TE) Program is a federally-designated category of funding that perform some maintenance and improvement activities. allows for the development and construction of non-motorized facilities, among other eligible expenditures. The TE program Communities can work to develop sidewalk or trail connections has been the primary funding source for non-motorized facility between residential neighborhoods and commercial areas or development at the local, regional, and state levels in Michigan. services, in order to provide alternative transportation options There are other federal programs that fund non-motorized for residents. Improving pedestrian and bicyclist safety along facilities, including the Highway Safety Programs, National connecting routes can also encourage more residents to walk Scenic Byways Program, and Recreational Trails Program. or bike, reducing their dependence on a car. Planning and zoning can also be an important factor in encouraging non- State funding sources include the Michigan Natural Resources motorized transportation. Zoning ordinances can require new Trust Fund (MNRTF), the MDNR Recreation Improvement developments, or the redevelopment of an area, to provide Fund, and the Michigan Transportation Fund. State law also sidewalks, street furniture, multi-use paths, parking area requires that at least 1% of a local road agency’s Michigan for bicycles, higher densities, or undeveloped green space, Transportation Funds must be used for the construction all of which can enhance non-motorized transportation.

34 ©©Rail, Air, Water & Freight Transportation

Northwest Michigan’s transportation network serves more than residents: roads, air, rail, and water transportation choices are critical for business, tourism, and industry, providing the infrastructure needed to serve visitors to the region and to import and export a variety of products needed for business and industry.

Rail Service While passenger rail service is not available in the region, rail remains an important transportation need for industry, and is used to transport freight throughout the region.

Railroads in the region are owned by the State of Michigan and operated under contract by the Great Lakes Central Railway Company (GLC). The tracks were purchased by the state in the late 1970s and early 1980s to preserve rail service in the area. The Great Lakes Central Railroad is the largest regional railroad in the state of Michigan and covers 424 miles of track (some of which is not publicly owned). Current freight traffic includes fruit and other perishables, scrap metal, and lumber. While the State’s rail infrastructure carries over 350 million tons of freight annually, few businesses report using the railroad for freight shipments in the region: a 1995 survey of shippers in the Grand Traverse area found six rail users in the region. Of the six, three utilized rail for lumber transport, and two shippers moved machinery and scrap metal by rail. The existing tracks are in poor repair which discourage their use. Currently, 65% of track in the Great Michigan has long-standing support. A Lakes Central Railroad is limited to a 40 2002 report found that the preservation MDOT has made substantial investments mph speed for freight and 59 mph for of rail service and rail right-of-way could into the state-owned lines operated passenger service, while 26% is limited enhance regional opportunities for in this region. MDOT’s 2011 State to 25 mph for freight and 30 mph for transportation, economic development, Rail Plan recommends continued passengers. These limited speeds, which tourism and recreation; the report investments in the other two railroads are based partially on the condition of strongly recommended that the Northern in the region, the LS line to Alpena the tracks, create obstacles to offering Michigan Rail System and right-of- and the Marquette Rail (MQT) line to full-service passenger rail service in the way be protected and maintained in its Manistee and Ludington, including the region. However, despite the challenges entirety.3 In addition, a recent report repair of bridges, track rehabilitation, associated with implementation of prepared by the Michigan Land Use and grade crossing improvements. passenger rail service, preserving and Institute details the opportunity for rail enhancing rail service in Northwest passenger service between Traverse City

35 and Acme, finding that the estimated cost to improve the tracks, less than $2 million, may be modest enough to secure funding and serve as a model for other subregional rail services.4 With major destinations at each end, downtown Traverse City and the Grand 462,000 Traverse Resort, the rail may provide services as a seasonal tourist shuttle PASSENGERS FLYING THROUGH NORTHWEST MICHIGAN’S as an achievable first step and a move COMMERICAL AIRPORTS IN 2014 towards year-round daily commuter service. Implementation of passenger rail service to Traverse City and/or Petoskey was also consistently identified as a top priority through the State Rail 3.6 MILLION Plan public outreach effort. Supporters argue that regular passenger rail service POUNDS OF FREIGHT PASSING THROUGH NORTHWEST would provide a substantial benefit to MICHIGAN’S COMMERICAL AIRPORT IN 2014 the region by providing transportation alternatives for visitors and residents alike. The State Rail Plan recommends that MDOT initiate a feasibility study of passenger rail service to this region of Michigan that considers potential routes to both Detroit and Chicago. NORTHWEST MICHIGAN COMMERCIAL AIRPORT TRAFFIC, 2012-2014 NUMBER OF PASSENGERS POUNDS OF FREIGHT Air Service AIRPORT Air transportation is critical to the 2012 2013 2014 2012 2013 2014 region’s economy. In addition to providing important services to area Cherry Capital 362,059 378,241 397,649 2,768,148 2,707,851 2,814,917 residents, our airports support our region’s strong tourism industry, and Pellston significant amounts of freight travel Regional 49,451 53,831 56,817 714,482 793,850 812,405 through them on a regular basis. Airport Manistee Cherry Capital Airport in Traverse City, County 5,908 5,390 7,708 0 0 0 which is owned by the City of Traverse Blacker City and Grand Traverse County and Total 417,418 437,462 462,174 3,482,630 3,501,701 3,627,322 operated by the Northwest Regional Airport Commission, is the region’s Source: State of Michigan Aeronautics Freight Division, 2015 primary airport, providing both air freight service and commercial air service. Commercial parcel carriers United Parcel Regional Airport in Emmet County, which geography and distance from major Service (UPS) and Federal Express served over 56,000 passengers and metropolitan areas means that air service (FedEx) both fly out of the airport multiple over 800,000 pounds of freight in 2014. is vital in providing the fast, convenient times each day. In addition, Cherry connections needed by businesses to Capital Airport is a Port of Commerce for While Cherry Capital Airport is the interact with partners and customers shipping. A private carrier service also largest airport in the region, the nationally and globally. In addition, as flies on weekdays from the airport. In region hosts 27 the region’s reputation as a vacation 2014, over 397,000 passengers flew from airports and two heliports that provide destination expands outside of the or to Cherry Capital Airport, making it important services to businesses, Midwest, low-cost and convenient flights the fourth largest passenger airport in visitors, private pilots, and others. to and from the region will be crucial in Michigan; and over 2.8 million pounds encouraging additional tourism activity. of freight passed through the airport in As the economies of the state and the Supporting, enhancing, and improving that year, representing the sixth largest region become increasingly networked air transportation is thus an important amount of air freight in the state. Air on a global scale, air transportation is a economic development initiative that freight service and commercial air fundamental infrastructure component can contribute immensely to economic service is also provided at the Pellston for economic development. The region’s development efforts regionwide.

36 NORTHWEST MICHIGAN AVIATION FACILITIES

PUBLIC USE AIRPORTS TOTAL FAA PART 139 COUNTY HELIPORTS PUBLICLY OWNED PRIVATELY OWNED FACILITIES CERTIFIED Antrim 2 2 4 Benzie 2 2 Charlevoix 4 2 1* 7 Emmet 2 2 1 Grand Traverse 2 1 1* 4 1 Kalkaska 1 1 Leelanau 2 2 4 Manistee 1 1 1 Missaukee 2 2 Wexford 1 1 2 Total 17 10 2 29 3 Source: Federal Aviation Administration Aeronautical Information Services, 2015 * Restricted to Medevac use

88,276 NUMBER OF AIRCRAFT OPERATIONS CONDUCTED AT CHERRY CAPITAL AIRPORT IN 2014 THIRD MOST OPERATIONS FOR TOWER CONTROLLED AIRPORTS IN MICHIGAN

332,000

NUMBER OF AIRCRAFT OPERATIONS FORECAST FOR PUBLIC USE AIRPORTS IN NORTHWEST MICHIGAN BY 2030

Source: Federal Aviation Administration Air Traffic Activity System (ATADS);MDOT Michigan Airport System Plan - MASP 2008

37 Water Transportation City of Frankfort; and Charlevoix County Island Boat Company provides ferry Northwest Michigan’s extensive in the City of Charlevoix; however, the service to Beaver Island, beginning Great Lakes shoreline has historically Marathon Oil Traverse City Terminal, in April and ending in November. contributed to commercial freight which served as a primary distribution movement by ship. Great Lakes center for refined petroleum, closed The Grand Traverse Band of Ottawa ports have the unique feature of in 2013. In addition, Traverse City is and Chippewa Indians is currently connecting to both the Atlantic Ocean home to the Great Lakes Maritime exploring a ferry/water taxi service via the St. Lawrence Seaway and Academy, Michigan’s state maritime across to connect also the Gulf of Mexico via the US academy, where students are trained the Leelanau Sands casino facilities in Coast Guard approved Mississippi as deck and engineering offices for Peshawbestown with the Turtle Creek Barge Route. All commercial ports the commercial shipping industry. Casino in Acme while providing more in Michigan are serviced by US convenient transportation for tribal Customs offices in Detroit, Sault Ste. In addition to commercial shipping, members to access tribal services and Marie, Saginaw and Port Huron. two passenger/freight services are resources. This system may also be provided to islands in Lake Michigan. able to be coordinated or integrated In Northwest Michigan, commercial Manitou Island Transit provides ferry with the existing passenger services to ports are located in Leelanau County service to North and South Manitou the Manitou Islands in Leelanau County in Greilickville; Manistee County in the Islands generally between Memorial and passenger and freight service to City of Manistee; Benzie County in the Day and Labor Day, and the Beaver Beaver Island in Charlevoix County.

38 Opportunities: Rail, Air, Water & Freight Transportation

Transportation and land use planning should consider locations together with the State of Michigan and Great Lakes Central for freight terminals and businesses with freight service. (GLC) and their predecessors to address important issues Locations served by rail, air service, sea ports and major and provide support to ensure continued rail service in the roads are ideal. Space may need to be preserved through area. Opportunities may exist for working collaboratively in land use planning to minimize future conflicts and to allow coordination with MDOT’s 2011 Michigan State Rail Plan, for future expansion and additional economic development. which guides the development of the rail system and rail services in Michigan and establishes state policy involving The region has a long history of working together to freight and passenger rail transportation, including commuter maintain and improve rail service and expand air service. rail operations. The State Rail Plan identifies current and In the late 1980s, a coalition of local governments and future needs of the system, considers and defines public businesses came together to encourage Northwest policies that will encourage and enable ongoing investments to provide commercial air passenger and provide a financial to the system to support future needs, and identifies assurance mechanism to guarantee minimum revenues priorities and strategies to enhance or preserve rail service

Space may need to be preserved through land use planning to minimize future conflicts and to allow for future expansion and additional economic development.

for a period of time. Air service was so successful that that benefits the public. This Plan meets the state rail the minimum revenue requirement was met every year planning requirements included in the federal Passenger Rail and the financial support was never needed. Significant Investment and Improvement Act of 2008 and will help to improvements have been made to the Cherry Capital Airport assure that Michigan is positioned to obtain federal funding and the Pellston Regional Airport; their continued growth for rail projects. The plan will serve as the basis for future is critical to the economic well-being of the region. federal and state rail investments in Michigan. MDOT has also contracted for a Northern Michigan Freight Rail study, If the region is intent on preserving rail lines, similar coalitions which is expected to be complete in the fall of 2014. can also help to address rail needs and overcome financial obstacles. Local governments and businesses have worked

39 ©©Multi-Modal Transportation Network

Perhaps the most important and most challenging aspect of transportation planning is to integrate multiple modes into an overall coordinated transportation network that provides mobility, choice, access, and convenience for all users. An effective, integrated multi-modal transportation system can reduce congestion by moving more people in the same amount of space and reduce overall system costs by enhancing alternatives to automobile travel, reducing the need for road capacity Integrating diverse forms of transportation can reduce congestion while fostering expansions and on-going maintenance stronger, healthier communities. costs. However, the multiple and diverse transportation entities and a Fostering Strong Communities lanes; comfortable and accessible public funding system that has historically A recent study found that people transportation stops; and/or frequent been based on singular transportation who live in walkable communities are and safe crossing opportunities which modes makes this challenging. more likely to be socially engaged involve median islands, accessible and in better health than residents pedestrian signals, curb extensions, Complete Streets of less walkable neighborhoods. narrower travel lanes, and more. One of the most significant trends in providing transportation choice is the Placemaking Michigan’s Public Act 135 of 2010 Complete Streets movement. Complete Complete Streets create more requires the development of a complete Streets are streets for everyone: they walkable and livable communities. streets policy to promote safe and are designed and operated to enable efficient travel for all legal users of safe access for all users, including Economic Development the transportation network under the pedestrians, bicyclists, motorists and Baby boomers, Millenials, and others jurisdiction of the Michigan Department transit riders of all ages and abilities. are increasingly looking to live and of Transportation (MDOT). Public Act 135 Complete Streets make it easy to cross do business in neighborhoods and defines complete streets as “…roadways the street, walk to shops, bicycle to districts that are highly walkable. planned, designed, and constructed to work and allow buses to run on time. provide appropriate access to all legal Benefits of Complete Streets include: Environment users in a manner that promotes safe Increased opportunities for walking and efficient movement of people and Improved Safety and biking help to reduce air pollution goods whether by car, truck, transit, Streets designed with sidewalks, from cars and trucks, as well as the assistive device, foot, or bicycle.” raised medians, better bus stop size and amount of paved areas, placement, traffic-calming measures, resulting in a potential reduction in Complete streets require integrated and treatments for disabled travelers storm water quantity and quality. design that occurs within the context improve pedestrian safety. of land use developments: the form Safety and design of buildings can impact Health Improved non-motorized connections a community’s walkability, vehicular Complete streets encouraging walking reduce conflicts between various access, and connectivity of the road and bicycling: a CDC study found that modes of travel, improving safety for network. Regulations affecting these 43% of people with safe places to pedestrians, bicyclists, motorists, and features are thus critical elements of walk within 10 minutes of home met other transportation network users. effective Complete Streets planning. recommended physical activity levels. There is no singular design prescription Lower Transportation Costs for Complete Streets; each one is When residents have the opportunity unique, designed around and responding to walk, bike, or take transit, to its community context. A complete they’re able to replace car trips street may include sidewalks, bike lanes with these inexpensive options. or wide paved shoulders; special bus

40 Opportunities: Multi-Modal Transportation Network

Because an efficient, effective, multi-modal transportation crosswalks. State law currently only requires drivers to network requires consideration of a wider community yield to pedestrians, not necessarily stop for them when context that addresses both the built environment they are attempting to enter the street from the curb. and transportation needs, communities must work in partnership with other transportation stakeholders to It’s also important for communities to recognize that Complete ensure that all road users’ needs are identified and Streets require integrated design that occurs within the addressed. Communities might consider forming task context of land use developments: the form and design of forces or coalitions to share information and support buildings can impact a community’s walkability, vehicular consideration of Complete Streets in transportation design. access, and connectivity of the road network. For instance, development featuring a mix of commercial and residential To integrate Complete Streets priorities into policy and uses provides greater opportunities for walking and biking, investments, some communities and agencies in Northwest while development patterns that feature high density and/ Michigan have passed Complete Streets resolutions to declare or a series of buildings with continuous street or sidewalk support and consideration of Complete Streets principles in frontage are more conducive to pedestrian activity than future long-range planning documents and projects. Creating low-density development that is set back from the road

Communities might consider forming task forces or coalitions to share information and support consideration of Complete Streets in transportation design.

complete streets means transportation agencies change behind a large parking lot. Access management regulations, their approach to community roads. By adopting a Complete meanwhile, can offer opportunities to more safely address Streets policy, communities direct their transportation planners the integration of pedestrian and vehicular traffic. Regulations & engineers to routinely design and operate the entire right affecting these features are thus critical elements of effective of way to enable safe access for all users, regardless of age, Complete Streets planning; and communities that are working ability, or mode of transportation. This means that every to improve multi-modal connections can consider zoning transportation project will make the street network safer changes that incorporate design features, density, mixed for drivers, transit users, pedestrians, & bicyclists – making use, sidewalks and other features that enhance walkability. a more desirable place to live. Recent Complete Streets policies and endorsements passed recently by communities Safe Routes to School programs offer another opportunity region-wide represent the priority and consensus to create for communities and stakeholders to implement multi- transportation facilities that accommodate all users. modal improvements. The Safe Routes to School Program designed to enable and encourage children to safely In addition to, or in place of, Complete Streets plans or bike and walk to school. The initiative can be adopted at resolutions, some communities may enact ordinances a local level, and features partnerships among schools, that further multi-modal goals. For instance, the Traverse parents, and community stakeholders to plan, promote, City Commission also adopted an amendment to the develop, and implement projects that will improve safety City Code of Ordinances that requires all vehicles and reduce traffic in and around elementary schools. (including bicycles) to stop for pedestrians in marked

41 ©©Local Implementation Checklist: Transportation

Planning and zoning can be important implementation tools Develop and promote reliable, efficient fixed-route transit for communities that are working to address transportation services connecting major nodes throughout the region needs. The Local Implementation Checklist identifies some examples of how communities in Northwest Michigan and —— Cooperate with major employers, retailers, other parts of Michigan have addressed transportation in schools, and tourism vendors for the use of mass their local policies. These examples, and Framework for Our transit by employees, residents, and visitors. Future Strategies, are provided as a resource for communities —— Strategically locate park-and-ride facilities. as they develop and adopt their own local policies. —— Make transit routes convenient and direct. —— Upgrade and expand facilities for public transit Master Plan Goals and Objectives patrons (all-season bus shelters, route signs depicting services, bicycle racks on buses, reduced A master plan is a guide that’s intended to shape local headway times, frequency of buses, etc.) decisions about managing resources, directing growth, and how development should be designed. Master plans Collaborate with the Michigan Department of Transportation help the community understand current conditions, (MDOT) on the “Safe Route to School” program build a vision for the future, make recommendations about actions to take on various community issues, —— Enable and encourage children, including those and act as the foundation for zoning ordinances. with disabilities, to walk and bicycle to school. —— Make bicycling and walking to school a safer Transportation is inextricably linked to land use and community and more appealing transportation alternative development needs and patterns. Master plans offer a unique by facilitating projects that will improve safety opportunity to ensure that transportation investments are and reduce traffic, fuel consumption, and air coordinated with land use policies, goals, and investments. pollution in the vicinity of elementary schools Transportation is addressed in nearly all of the region’s master plans. Some include general statements, while others Maintain and improve the existing road system for safe and identify a number of specific actions that address community effective flow of all users by applying Complete Street prin- needs. A small sampling of goals that address transportation ciples needs and priorities, based on language included in master plans throughout the region, is identified below. —— Work with regional partners to develop a roadway Capital Improvement Plan (CIP) Provide a balanced, high-quality, multi-modal transportation that includes a “fix it first” policy. network that provides safety and efficiency for all users —— Require new private streets to be designed and built to an appropriate scale and standards. —— Maintain and improve the existing road system —— Consider street design and construction standards to provide for traffic flow that is safe and that provide for safe and efficient traffic flow while efficient for all users, including vehicle/truck ensuring flexibility for road designs and paving traffic, pedestrians, bicyclists, and others surfaces based on expected traffic patterns —— Improve and expand sidewalks Expand and enhance airports and air services to create at- Develop an active transportation network providing safe, tractive regional transportation hubs for employers, tourists, convenient, inviting, and efficient infrastructure serving and residents people of all abilities

—— Improve and expand bicycle lanes, sidewalks, crosswalks, multi-use trails, etc. —— Focus investment for infrastructure around activity centers, such as job hubs, shopping destinations, primary medical facilities, leisure activity facilities, schools, park-and- ride lots, residential developments, etc.

42 Local Implementation Checklist: Transportation

Collaborate with the Michigan Department of Transportation (MDOT) on the “Safe Route to School” program —— Design development to provide for safe and efficient traffic flow, including alternative parking strategies. —— Limit the number of driveway accesses and encourage shared parking lots. —— Stripe roads for diagonal parking. —— Work with area businesses to have their employees park in certain areas first. —— Expand on-street parking in and adjacent to the busiest commercial areas while also making more off-street parking available to reduce congestion

Zoning Ordinance Elements

Zoning ordinances are local laws that regulate land and buildings in order to protect the health, safety, and welfare of all citizens. It helps define how properties are used, what new buildings look like, and how much development can occur in a community.

Zoning offers some important opportunities for improving and enhancing the local transportation network. Communities throughout Northwest Michigan have adopted ordinances that can improve and enhance the region’s transportation network connections, safety, and efficiency. Local decision-makers may consider zoning regulations that:

—— Limit the number of access drives along major corridors for individual residential or commercial developments —— Encourage shared access drives and parking —— Require pedestrian connections for new development —— Create an airport overly district that allows for larger storage buildings while limiting the intensity of commercial and light manufacturing use —— Permit higher densities and mixed uses in commercial corridors and neighborhoods with close access to services/mixed uses to reduce the need to drive —— Encourage or require Complete Streets treatments, such as sidewalks or pedestrian crossings —— Include design guidance or form-based elements that require or encourage traffic calming measures

43 ©©Framework Strategies

As a resource for communities in Northwest Michigan, the specific strategies designed for on-the-ground Framework for Our Future identifies a number of strategies activities and bricks-and-mortar implementation. and actions that communities can take locally to address their specific needs. Because each community identifies Each strategy includes additional information their own goals, through public input, local discussions, intended to aid in implementation, including: and need analyses, the strategies and actions identified in the Framework are not intended as recommendations for Why? any communities to implement or adopt. Rather, they are provided as a resource list of potential actions that, if desired, Each strategy is designed to address a certain issue. can be taken locally and/or used as model language for Information is provided to detail specific community needs local master plans, organizational strategic plans, and other that might be met through implementation of the strategy. policy documents, to address various community needs. Actions The strategies and actions in the Framework were developed from public input and local, regional, statewide, and national To implement each strategy, communities can sources. Many are based on public input obtained during consider taking action in a number of ways. This the Framework for Our Future process in events, focus section identifies some specific actions that groups, interviews, online discussions, and community communities might consider to reach local goals dialogues, and were also drawn from or based on master plan language from existing adopted master plans within Tools & Resources and outside the region. Others reflect state or national best practices designed to address specific issues. A number of existing tools or resources are available to partners that are interested in taking action on Strategies are grouped around four major themes that reflect a particular strategy. This section identifies, and needs and potential actions for each community issue. provides links to, tools and resources such as:

Education, Data & Outreach. Often, taking action on • Research or background studies that can help a community need requires a solid understanding of the communities identify specific community needs in need, as well as public consensus on the appropriate order to develop appropriate policy or initiatives course of action. Education, Data, & Outreach strategies address data gaps, outreach needs, and educational • The Framework for Our Future Action Guide, which opportunities that can help to improve community provides details and implementation guidance for understanding and awareness around a particular issue. planning and zoning actions identified in theFramework

Planning & Policy. Many community issues can be • Guidebooks and workbooks that provide step-by-step addressed in part by local policy, such as master plans and information on actions and the implementation process zoning ordinances. Planning & Policy strategies identify broad policy goals and specific changes to master plans • Examples of where the action has or zoning ordinances that can impact a particular issue. been implemented regionally

Financing & Incentives. Communities can use funding • Local, regional, state, or national reference and incentive tools to encourage private, public, and documents that can provide additional guidance nonprofit initiatives and activities that meet local goals. Financing & Incentives strategies identify opportunities Links to all resources are available that can enhance organizational capacities, as well online at www.nwm.org/rpi. incentives that may help communities work with the private sector and others to meet local goals. Measures

Development & Implementation. Goals for each Communities can track progress toward these goals and community issue center around programs, development actions by benchmarking data identified in this section. or initiatives that directly and tangibly impact community While some measurement data will be locally generated needs. Development & Implementation goals include and tracked, many indicators can be accessed on the regional data portal www.benchmarksnorthwest.org.

44 Transportation: Data, Education & Outreach Improve awareness, knowledge and understanding of transportation needs, programs, and opportunities Proactively engage all stakeholders and the public Strategy 1 on transportation system needs, planning, and improvements Transportation improvements affect all parts of the community. However, transportation planning is complex, and it can be difficult to engage the public and stakeholders. Providing Why? information on transportation needs and opportunities to engage can help develop a community consensus on needed improvements and priorities.

Develop resources and provide educational Develop communication plan to share opportunities on transportation planning information regarding costs and investment process process for road network

Develop, maintain, and regularly update a Conduct and share analysis on the web-based informational resource to share Actions interrelationships between transportation information on transportation projects for and land use public review

Create a public education program on Create an alternative fuel vehicle and individual transportation behavior and infrastructure toolkit for local governments impact on costs and the environment and transportation agencies

Networks Northwest Transportation Tools & Resources A Citizen’s Guide to Transportation Planning Improvement maps website Develop and provide educational services for Strategy 2 cyclists, pedestrians, drivers, and transit users A traditional dependence on private vehicles for transportation leaves many residents and visitors unfamiliar with other transportation options that can enhance mobility and reduce Why? transportation costs. Building an understanding of how different modes of transportation work can improve transportation access for all users.

Provide education on laws for both Develop an Intelligent Transportation System Actions bicyclists, pedestrians, and drivers to provide better traveler information Provide and maintain comprehensive data on non-motorized transportation opportunities

UpNorthTrails.org Tools & Resources Michigan Department of Transportation

45 Transportation: Data, Education & Outreach (continued) Raise awareness and use of transit, rideshare, and Strategy 3 vanpool services Using transit can be intimidating for many first time riders, especially the elderly and people with disabilities. Additionally, stigmas associated with transit usage discourage some new riders. Why? Education, awareness, and training programs help people become comfortable with transit services and helps connect residents to services available to them.

Leverage media networks to share Develop outreach and informational information on transit, rideshare, and vanpool resources for residents and visitors services

Provide, maintain, update, and enhance Broaden, update, and promote rideshare online transportation data and informational databases Actions tools for users Expand collaboration with human service Consider partnerships with visitors bureaus, agencies to provide one-call/one-click transit community festivals, and other community information

Develop outreach materials and leverage media networks to address negative perceptions and stereotypes of transit usage

Grand Vision Mobility Management Tools & Resources Northwest Michigan Ride Share Connection Plan & Coordination Strategies Ensure transportation plans, ordinances, and Strategy 4 initiatives rely on relevant and up-to-date data and studies As the region’s population and needs change over time, transportation stakeholders and community leaders must understand how usage, safety, and priorities for the transportation Why? network change over time in order to plan most effectively to meet needs. Accurate, up-to-date data will help transportation providers and agencies anticipate and plan for needs and improvements.

Develop and implement monitoring system to Work with airport managers to track annual measure non-motorized transportation use air passengers

Develop and participate in a data-sharing Develop regional freight forecasting tools network

Work with state and regional partners to Actions provide/participate in regular workshops, Collect, maintain, and analyze DOT presentations, and free and convenient crash data to identify most dangerous education opportunities such as webinars on intersections/corridors transportation planning tools and needs

Provide regional crash and traffic county Conduct cost benefit analyses to identify data for use in master plan updates and other costs of treatment vs. economic activity transportation planning initiatives generated through transit

Benchmarks Northwest UpNorthTrails.org Tools & Resources Michigan Department of Transportation Michigan Association of Planning

46 Transportation: Planning & Policy Coordinate policies, plans, initiatives & ordinances that support transportation connections and improvements for all users Consider plans, programs, and ordinances Strategy 1 that ensure a safe, efficient, and cost-effective transportation network A well-maintained and cost-effective transportation network requires consideration of a Why? wide range of community actors. Proactive plans and policies can ensure that transportation investments make the best use of resources while enhancing safety and efficiency.

Develop local capital improvement, Prepare and implement regularly updated construction, and/or economic development capital improvements plans to provide for plans for the purposes of collaborative effective budgeting, maintenance, and identification of regionally significant projects improvements of public facilities

Consider zoning changes that encourage Develop and implement access management Actions or require access management and traffic policies along commercial corridors calming measures

Work with MDOT to define and/or develop a Develop traffic safety improvement plan to consistent set of requirements for commercial address key issues in dangerous corridors/ corridor pedestrian crossings of state intersections highways

Tools & Resources Michigan Department of Transportation Consider plans, programs, and policies that Strategy 2 accommodate all road users An effective, integrated multi-modal transportation system can reduce congestion and costs by enhancing alternatives to automobile travel and reducing the need for road capacity expansions Why? and on-going maintenance costs. Considering the transportation network in a multi-modal context in local plans and policy decisions can help improve the efficiency, connectivity, and safety of the network for all users.

Consider zoning amendments that require Consider enacting or adopting Complete sidewalks or other non-motorized pathways in Streets, plans, policies or resolutions all new residential developments

Actions Consider mixed-use or form-based zoning Develop corridor plans to guide and that result in greater multi-modal connectivity coordinate transportation improvements with among residential areas, schools, growth and development along commercial employment centers, shopping, and transit corridors

Planning for Pathways: An Tools & Resources A Framework for Our Future Action Guide Implementation Resource of the New Designs for Growth Guidebook

47 Transportation: Planning & Policy (continued) Consider plans, programs, and ordinances that Strategy 3 meet the region’s air, rail, and freight needs Roads, air, rail, and water transportation choices are critical for business, tourism, and industry. Addressing the needs of these transportation choices in community policies will integrate this Why? infrastructure into larger transportation and community development decisions, ensuring an efficient and well-connected transportation network.

Consider land use planning initiatives around Conduct feasibility studies to explore airports to minimize public safety hazards opportunities for passenger rail service Actions while supporting airport operations Develop freight plans to identify and review regulatory and institutional barriers to efficient truck travel, adequate truck routes, and solutions to accommodate truck access and traffic

Getting Back on Track: Tools & Resources Uncovering the Potential for Trains in Traverse City Consider plans, programs, and policies that Strategy 4 enhance transit access and service To be effective, transit infrastructure must be coordinated with site design and land use policies. However, bus stops and other transit infrastructure are often addressed after the fact, Why? often resulting in inefficient and unsafe designs. A proactive approach to incorporating transit infrastructure into site design can enhance efficiency, safety, and connections.

Consider zoning changes to require Develop local guidelines for transit stops and consideration of transit stops in site plan development review Actions review Consider zoning changes to require consideration of transit stops in commercial and higher- density residential development

Tools & Resources A Framework for Our Future Action Guide Consider plans, programs, and policies that Strategy 5 enhance pedestrian and non-motorized access The form, density, and design of the built environment impacts opportunities for safe biking and walking. Plans, policies, ordinances, and other initiatives that proactively address and integrate Why? non-motorized transportation in the development process can result in a more efficient, safe, and connected non-motorized network.

Work to identify safe bicycle and pedestrian Develop plans identifying and prioritizing routes that improve connectivity and access bicycle and pedestrian facilities to residential areas, schools, employment centers, shopping, and transit Actions Work with MDOT to define and/or develop a Consider zoning amendments that require consistent set of requirements for commercial sidewalks or other non-motorized pathways in corridor pedestrian crossings of state all new residential developments highways

Planning for Pathways: An Tools & Resources A Framework for Our Future Action Guide Implementation Resource of the New Designs for Growth Guidebook

48 Transportation: Financing & Incentives Ensure continued and enhanced financial support for transportation network improvements and connections Work to assure adequate funding for infrastructure Strategy 1 maintenance An efficient, well- maintained road network is vital in a society that depends on roadways for access to homes, jobs, businesses, industry, schools, services, and shopping centers. However, Why? state and federal funding is limited, while maintenance needs are high. Adequate funding for upkeep is important to preserving the functionality and sustainability of the infrastructure.

Explore options for establishing a region-wide Advocate for greater flexibility in the use program to fund roadway improvements and of state and federal formula funds toward reconstruction system maintenance purposes

Explore and establish local or regional trust Resolve challenges between transportation Actions funds to provide matching dollars or funds for and recreation funding sources for bicycle transportation grants and improvements trails/pathways

Support change in state gas tax indexed to Continue to support local funding price rather than flat tax per gallon mechanisms to support transit

Tools & Resources Develop & support investment strategies based on Strategy 2 broad transportation management principles Transportation network needs are diverse, and improvements to meet those needs are often costly and time consuming. With limited transportation funding, communities and transportation Why? stakeholders must increasingly prioritize projects based on the vision, goals, needs, and priorities in order to use funds in ways that get the highest returns.

Develop project prioritization criteria that Seek and support financing for multi-modal helps to ensure that transportation funds are freight activity Actions being invested wisely Explore funding opportunities for a local government incentive program for multi-modal transportation alternatives and land use initiatives

Tools & Resources

49 Transportation: Financing & Incentives (continued)

Support and facilitate improved partnerships and Strategy 3 coordination among transportation stakeholders

Partnerships are an important mechanism for building and sustaining the financial resources and capacity needed to improve the region’s transportation network. They bring together diverse skills and resources for more effective outcomes that address the multi-faceted issues Why? facing the transportation network, while eliminating duplicative services. By making the best use of these resources, partnerships can improve results and add capacities to existing organizations.

Build, maintain, and sustain diverse Connect communities to resources and partnerships and coalitions to implement stakeholders that can provide technical transportation improvements assistance

Identify and coordinate grants with Develop a regional transit pass or other fare transportation partners and stakeholders coordination policies Actions Identify innovative funding sources and Use cost allocation models to develop opportunities to leverage transportation budgets and negotiate cost and revenue investments allocations

Work with businesses or employers to sponsor a bus or other transportation improvements

Tools & Resources

50 Transportation: Development & Implementation Ensure a well-maintained and connected transportation network for all vehicles, pedestrians, bicyclists, and transit riders Strategy 1 Maintain and improve existing road system A, safe, efficient, and well-maintained roadway network is one of a community’s most Why? fundamental infrastructure components. Sustaining this infrastructure helps to enhance residents’ quality of life while supporting new growth and investment.

Identify traffic safety concerns and resolve in Implement Transportation Improvement Plan a timely manner

Institute traffic calming measures on cross- Encourage shared access and drives along town high-speed routes roadways

Actions Consider public/private partnerships Minimize life cycle costs/follow an affordable and competitive service contracts for investment schedule maintenance and operations

Monitor road surface conditions with effective pavement management systems that can assist in evaluation, analysis, and prioritization of maintenance and rehabilitation needs on local streets

Tools & Resources Increase public transportation services between Strategy 2 regions and cities Transit is increasingly important for the economy: a growing senior population, high transportation costs, and worsening traffic congestion all contribute to a growing need for and interest in transit. However, large geographies and limited funding restrict transit services: Why? limited schedules and long travel times discourage the use of transit for accessing employment or services. Improving coordination of and support for transit will provide important mobility options and access that in turn can help to reduce traffic and congestion.

Implement a Regional Transit Network to Expand and enhance service times and hours coordinate transit across system boundaries based on need and demand

Improve transit access and accessibility Improve bus stop infrastructure

Develop a regional guaranteed ride home Integrate transit service with the tourism Actions program economy

Coordinate with intercity bus service (Indian Encourage employers to provide Trails, Greyhound) transportation and vanpool programs

Support non-emergency medical transportation and improve transit and supplemental transportation services for medical appointments

Tools & Resources Grand Vision Mobility Management Plan

51 Transportation: Development & Implementation (continued) Increase use and efficiency of rail, air, and water Strategy 3 travel and freight Roads, air, rail, and water transportation choices are critical for business, tourism, and industry. Ensuring that these transportation choices are efficient and cost-effective allows communities Why? to serve visitors and to import and export a variety of products needed for business and industry.

Support waterway trail systems and land/ Explore the development of port facilities to water infrastructure accommodate cruise ships

Support ferry services and other water Explore opportunities and funding to improve Actions transportation options that enhance travel rail infrastructure and tourism in the region

Consider funding opportunities, partnerships, and other initiatives to provide passenger rail service within and to the region

Tools & Resources Expand, enhance, and improve pedestrian and non- Strategy 4 motorized infrastructure Non-motorized facilities are an important and desired quality of life and economic development amenity that enhance recreation opportunities and provide important transportation options to the many residents throughout the region that can’t or don’t drive. However, despite their Why? importance to all parts of the community, they are often treated primarily as recreation assets that don’t receive the same level of funding priority as other transportation options, complicating the development process and creating funding hurdles for new trail or sidewalk connections or development.

Adopt and implement Complete Streets Improve disabled access in crosswalks and programs intersections

Connect residential, employment, shopping, services, recreation, and tourism assets with non- motorized and transit options

Actions Develop, enhance, or improve sidewalks or non-motorized pathways in and near higher-density residential developments to ensure non-motorized connections with nearby amenities

Incorporate sidewalks and bike lanes where appropriate into planned transportation improvements

Improve crosswalks and intersection crossing

Planning for Pathways: An UpNorthTrails.org Implementation Resource of the New Tools & Resources Designs for Growth Guidebook Land Information Access Association Trail Towns: Capturing Trail-Based Tourism – A Manual for Communities in Northern Michigan

52 References

1. Smart Growth America, 2013. Grand Vision Mobility Management & Coordination Strategies

2. U.S. Forest Service, The Economic Benefits of Recreational Trails

3. Northwest Michigan Council of Governments; 2002. Preserving Options: Maintaining Rail Corridors in Northwest Michigan.

4. Michigan Land Use Institute, 2014. Getting Back on Track: Uncovering the Potential for Trains in Traverse City.

Revisions

The September 2016 Addition has been edited for formatting issues, data corrections and updates, image additions, pagination, and grammatical errors. The substantive content of A Framework for Transportation in Northwest Michigan is as approved by the Networks Northwest Board on December 8, 2014.

In 2014, the Northwest Michigan Council of Governments (NWMCOG) adopted a new name to more clearly identify itself and the services it offers to businesses and organizations in northwest Lower Michigan. As such, NWMCOG became Networks Northwest. The Networks Northwest name represents the collaborative nature of the work that goes on within the organization and among the many businesses, organizations, and units of government which it serves.

The name change coincided with Governor Snyder’s Regional Prosperity Initiative, which puts a new emphasis on centering many state programs and services around common geographic regions. In response to that initiative and to streamline operations, NWMCOG’s two governing boards voted to start meeting together and operating as a single board. That board now operates under the Networks Northwest name.

Network Northwest facilitates and manages various programs and services for the 10 county region. These programs include Northwest Michigan Works, Prisoner Reentry Program, Small Business Development Center, Procurement Technical Assistance Center, Global Trade Alliance of Northern Michigan, various business services, and many different regional planning initiatives in response to our communities’ requests and needs.

Network Northwest member counties (Michigan’s Prosperity Region #2) are: Antrim, Benzie, Charlevoix, Emmet, Grand Traverse, Kalkaska, Leelanau, Manistee, Missaukee, and Wexford.

53 Networks Northwest | PO Box 506 | Traverse City, MI 49685-0506 networksnorthwest.org/rpp