Big Sur Highway 1 Sustainable Transportation Demand Management Plan
Big Sur Highway 1 Sustainable Transportation Demand Management Plan February 2020 ACKNOWLEDGMENTS Steering Committee Caltrans California State Parks Aileen Loe, Deputy District Director United States Forest Service John Olejnik, Senior Transportation Planner California Highway Patrol Jill Leal, Associate Transportation Planner Monterey County Resource Management Agency Kelly McClendon, Senior Transportation Planner Monterey County Board of Supervisors Consultant Team Monterey County Convention and Visitors Bureau Stephanie Grigsby, Design Workshop, Inc. California Coastal Commission Lindsay Kageyama, Design Workshop, Inc. City of Carmel-by-the-Sea Gordon Shaw, LSC Transportation Consultants, Inc. Big Sur Multi-Agency Advisory Council Bill Suen, LSC Transportation Consultants, Inc. Big Sur Chamber of Commerce Big Sur Land Trust Monterey Peninsula Regional Park District Community Association of Big Sur (previously Coast Property Owners Association of Big Sur) Carmel Highlands Association Transportation Agency for Monterey County Point Lobos Foundation Monterey-Salinas Transit San Luis Obispo Regional Transit Authority Association of Monterey Bay Area Governments San Luis Obispo Council of Governments Monterey Bay Air Resources District Jimmy Panetta, California US Representative - 20th District Bill Monning, California State Senate - 15th District Mark Stone, California State Assembly - 29th District Park It! Point Lobos Area Shuttle Big Sur International Marathon Bike SLO County Visit SLO Cal North Coast Big Sur Representative San Luis Obispo County Air Pollution Control District
ii Big Sur Highway 1 Sustainable TDM Plan ACRONYMS ADA Americans with Disabilities Act AMBAG Association of Monterey Bay Area Governments AVL automated vehicle location system BSMAAC Big Sur Multi-Agency Advisory Council CCC California Coastal Commission CCT California Coastal Trail CHMP Coast Highway Management Plan CHP California Highway Patrol CIP capital improvement plan CRSB Carmel River State Beach CSP California State Parks EV electric vehicle FHWA Federal Highway Administration GHG greenhouse gas HCP Hatton Canyon Property LPR license plate recognition MCCVB Monterey County Convention & Visitors Bureau MST Monterey-Salinas Transit NM national monument PCH Pacific Coast Highway PCRP Palo Corona Regional Park PEV plug-in electric vehicle PLRP Point Lobos Ranch Property PPP public-private partnership SB State Beach SLO San Luis Obispo SLORTA San Luis Obispo Regional Transit Authority SNR State Natural Reserve SOV single-occupant vehicle SP State Park TAMC Transportation Agency for Monterey County TDM transportation demand management USFS United States Forest Service V/DMS variable/dynamic message sign VMT vehicle miles traveled
iii Prepared By: Design Workshop, Inc. LSC Transportation Consultants
Big Sur Highway 1 Sustainable TDM Plan Contents Executive Summary viii 1 | Introduction 1 Plan Purpose 2 Building from a Common Foundation 2 Defining the Corridor 4 Vision 5 Values, Goals, and Objectives 5 Planning Process 6 2 | Elements of the Plan 9 Plan Components 10 Supporting Products 11 Relationship to Other Plans 11 Authority and Applicability 12 Environmental Compliance 13
3 | Existing Conditions 15 Community Context 16 Scenic Context 17 Environmental Context 21 Transportation Context 22 Electric Vehicle Context 28 Recreation Context 30 4 | Issues and Challenges 35 Corridor Experience 36 Transportation 38 Electric Vehicle Infrastructure 40 Technology Infrastructure 40 Environment 41 5 | Corridor TDM Opportunities 43 Transportation Demand Management Overview 44 Transit and Shuttle Services Opportunities 48 Traveler Information Opportunities 58 Infrastructure Enhancement Opportunities 63 Active Transportation Opportunities 72 Data Collection Opportunities 76 Parking Management and Enforcement Opportunities 78 6 | A Path Forward 81 Partnerships 82 Big Sur Byway Organization 83 7 | TDM Toolkit 85 Overview of TDM Toolkit 86 APPENDICES Public Engagement Summary...... Appendix A Existing Conditions and Data Summary...... Appendix B Miovision Data Summary Memo...... Appendix C Muir Woods National Monument Parking and Shuttle Reservation Program Summary...... Appendix D Big Sur Shuttle Demo Project Approval Letter...... Appendix E
TABLES Table 1: Travel Origin-Destination Results of 2018 Postcard Survey...... 23 Table 2: Electric Vehicle Charging Stations...... 28 Table 3: Annual Attendance at State Park Units in the Study Corridor...... 36 Table 4: Desired Outcomes and Performance Indicators...... 47
vi Big Sur Highway 1 Sustainable TDM Plan FIGURES Figure TOC Figure 1: Corridor Project Area...... 4 Figure 2: Project Process...... 6 Figure 3: Transportation Demand Management Toolkit Categories...... 10 Figure 4: Character Zones throughout the Corridor...... 18 Figure 5: Travel Origin-Destination Results of 2018 Postcard Survey...... 22 Figure 6: Highway 1 Peak Month Average Daily Traffic Volumes through Big Sur (data reflects actual counts and not projections)...... 24 Figure 7: Existing Paved & Signed Slow Vehicle Turnouts...... 24 Figure 8: Existing MST Line 22 Service...... 26 Figure 9: Existing SLORTA Line 15 Service...... 27 Figure 10: Existing Electric Vehicle Charging Stations...... 29 Figure 11: Land Ownership...... 31 Figure 12: Hotspot Recreation Areas...... 33 Figure 13: In-Corridor Shuttle Opportunities - Carmel to Nepenthe...... 49 Figure 14: Through Public Transit Opportunity...... 51 Figure 15: Point Lobos Shuttle Conceptual Routes...... 53 Figure 16: Big Sur Area Shuttle Opportunity...... 55 Figure 17: Pfeiffer Beach Shuttle Opportunity...... 56 Figure 18: Multi-Agency Visitor Hub Cooperation...... 59 Figure 19: Existing Public Restrooms...... 65 Figure 20: Potential Guidelines for Slow Vehicle Turnouts for Highway 1...... 66 Figure 21: Existing Slow Vehicle Turnouts...... 66 Figure 22: Slow Vehicle Turnout Opportunities...... 67 Figure 23: Guidelines for Delineated Parking Areas and Viewpoints...... 68 Figure 24: Paved Shoulders for Shared Use...... 73 Figure 25: Potential Locations for Permanent Traffic Counts...... 76 Figure 26: High Demand Visitor Locations...... 78 Figure 27: TDM Strategy Categories...... 86
vii EXECUTIVE SUMMARY Traveling the Big Sur Pacific Coast Highway – a 100-mile stretch from Carmel-by-the-Sea to Hearst Castle – is a breathtaking and internationally-acclaimed experience. The area surrounding THE CHALLENGE Highway 1 is full of majestic parks and public lands. It provides Highway 1 comes with many access to the Los Padres National Forest, eleven state parks, seven environmental and engineering historic bridges, two historic lighthouses, and the California Coastal constraints due to its location at National Monument. the intersection of land and sea. Visiting the Big Sur Coast lends These places have made Big Sur a world-class destination. The 2019 itself largely to driving, although Monterey County Travel Impacts report prepared for the Monterey bicycling and bus tours are also County Convention and Visitors Bureau shows that travel spending popular. The region’s high- accounted for a generated $135 million in local travel-generated demand parks have attained receipts in Monterey County in 2018. Of that amount, $44 million their popularity because they of economic impact is associated with unincorporated areas of the provide an irreplaceable portal county. Additionally, Big Sur is experiencing a travel boom from to open space and nature. international and other markets that experts predict will take 20 years to peak. The stark reality is that without thoughtful planning Without planning that builds that builds upon the Coast Highway Management Plan (CHMP) upon the Coast Highway and Big Sur Coast Land Use Plan to plan for and incentivize Management Plan and Big Sur alternative ways to access the corridor, Big Sur’s massive popularity Coast Land Use Plan to prepare could eventually damage the very scenic qualities and natural for and incentivize alternative beauty that make the area so precious. ways to access the corridor, Big Sur’s massive popularity Background and Context is damaging the very scenic Highway 1 is a two-lane, conventional, mountainous road subject qualities and natural beauty that to the environmental and engineering constraints that come along make the area so precious. with being located at the dramatic intersection of land and sea. The region’s high-demand parks have attained their popularity because they provide an irreplaceable portal to open space and nature. As a result, parking quickly reaches capacity, initiating a sequence of events that leads to significant congestion, operational issues, and maintenance concerns. Vehicles begin parking on the narrow, unpaved shoulders stretching out distances that can extend beyond a mile of multiple points of interests along the coast. Cars slow to search for available spots or to react to other drivers in the process of parking, passenger loading/unloading, or crossing the road. Although available data does not indicate exact visitation levels, user behavior has increasingly been a source of conflict. These behavioral shifts are experienced at many recreation areas throughout the country. The promotion of specific Big Sur experiences by marketing agencies, television shows, and—most notably—social media often encourage users to visit only a few locations which can quickly be overwhelmed. “Selfie culture” has become ingrained in the way people travel, often dictating which sights people visit. It creates “bucket list” places, where people go to the place, capture images proving they were there, and move on to the next location.
viii Big Sur Highway 1 Sustainable TDM Plan The Plan and Opportunities The Highway 1 Sustainable Transportation Demand Management (TDM) Plan builds upon previous plans and creates a framework THE OPPORTUNITY to address recent challenges and consider how transit, sustainability, The Plan’s vision is to preserve and related enhancements can be part of the Big Sur experience. the rugged and scenic nature These concepts include planning-level identification of shuttle of the Big Sur experience for opportunities, supporting strategies, and planning considerations all people through balanced, for zero-emission vehicle (ZEV) charging stations. It also describes adaptive management technology strategies that aid in visitor trip planning and provide strategies that encourage real-time traveler information. the use of transit and active transportation to enhance the In addition to the diverse recreation destinations and places travel experience and support to explore, driving the Big Sur Coast Highway is a recreation sustainable corridor access. experience in itself. Therefore, TDM strategies are considered in context of both desired user behavior and the potential for In addition to promoting a influencing different transportation choices. Land managers, transit connected “thru-corridor” operators, and enforcement agencies will need to work together to transit experience, the Plan achieve corridor TDM goals. discusses how shorter shuttle service opportunities can The Plan organizes TDM opportunities into the six categories listed operate on a seasonal basis to below. The document also includes a toolkit of TDM strategies that provide access to recreation can be used as a resource for managing rural, two-lane highways destinations, promote corridor with community and visitor demands similar to the Big Sur Coast. exploration to support local ▪ Transit and Shuttle Services Opportunities businesses, and reduce impacts ▪ Infrastructure Enhancement Opportunities associated with roadside ▪ Traveler Information Opportunities parking and visitor behavior. ▪ Active Transportation Opportunities TDM opportunities include ▪ Parking Management and Enforcement Opportunities transit and shuttle services, ▪ Data Collection and Analysis Opportunities infrastructure enhancements, information programs, and Moving Forward management strategies and No single agency can address the issues associated with visitation policies designed to make it demand and recreation access desires along the Big Sur Coast easier for people to reach their Highway. Similar to the CHMP, this document anticipates shared destinations without using a ownership over decision-making and for further developing, vehicle. refining, and carrying out Plan opportunities. Benefits include congestion Fulfilling the vision of the Plan requires continued collaboration management, improved air and commitment by public and private land managers, property quality, reduced erosion and owners, agencies, and organizations. The opportunities described improved water quality, and illustrate strategies through which the corridor vision can be reduced energy consumption. achieved and the corridor managed in a collaborative framework. For recreation areas like the Because strategies and opportunities address shared issues and Big Sur Coast, the result can are not all the purview of one agency or organization, a Byway also be an improved corridor Organization as envisioned by the Coast Highway Management experience for residents and Plan, would serve a productive role to achieve change. It is not the visitors. intent to have this Byway Organization direct individual agency goals or their budgets. Rather, they will have a role in moving forward the strategies of both the Coast Highway Management Plan and the Sustainable TDM Plan by guiding a coordinated approach for corridor management.
ix ImagePROJECT courtesy TITLE of Caltrans | Project City, State
Big Sur Highway 1 Sustainable TDM Plan Chapter 1 Introduction
Chapter 1 | Introduction 1 Plan Purpose The Big Sur Highway 1 Sustainable Transportation Demand Management Plan (Management Plan or Plan) establishes/offers a framework of collaborative strategies that build upon previous plans to address visitor experience and management challenges to re-imagine the Big Sur Coast Highway experience in an efficient and environmentally sustainable way. The Management Plan focuses on the recommendations of foundational developing transportation demand planning documents and current efforts to management strategies (TDM) for 100 instill a sustainable visitation ethic. miles of coastal highway (from south of Carmel-by-the-Sea to the State Route (SR) The California Coastal Act of 1976 has 46 intersection in San Luis Obispo County). been one of the key guiding documents for In addition to identifying viable driving Big Sur; Monterey County and San Luis alternatives as a way for visitors to access Obispo County both have established local and experience the Central Coast, the Plan coastal programs as required by the Act. discusses opportunities to improve the Public access policies of the Coastal Act overall corridor experience for residents induce a requirement that maximum access and visitors. Examples include identifying opportunities be provide to and along the strategies for locating public electric vehicle coast. While many additional documents charging stations; addressing high demand were reviewed and referenced as part of areas; improving viewpoints, turnouts, and the Management Plan’s development, two shared shoulders; and reinforcing desired fundamental plans create the foundation visitor behavior. for highway opportunities and strategies. The Big Sur Coast Land Use Plan (an Achieving the Management Plan’s goals element of the Monterey County’s Local requires collaborative decision-making Coastal Program) and the Big Sur Coast among land managers and agencies. These Highway Management Plan were each the partners and others will use the framework result of comprehensive and collaborative established in this document to develop processes. They reflect the combination of more specific action plans. sound and sustainable planning practices with the realities of the physical and natural BUILDING FROM A environment and the needs and desires COMMON FOUNDATION of residents. The study boundaries of the The Big Sur Coast Highway is beloved by different plans vary, but these plans serve residents and visitors. The high level of as the starting point for the goals and community interest and commitment to a approaches discussed in this document. sustainable highway can be seen through Big Sur Coast Land Use Plan The Big Sur Coast Land Use Plan is a governing policy document for a portion of the corridor. It was adopted in 1986 and is currently being updated. The Land Use Plan was created to implement the California Coastal Act of 1976, so that all development harmonizes with and is subordinate to the wild and natural character of the land. The Plan looks at approximately 70 miles from Carmel in the north to the Monterey/San Luis Obispo County line in the south. Foundational plans for the Big Sur Coast Highway
2 Chapter 1 | Introduction Big Sur Highway 1 Sustainable TDM Plan The document lays out a set of procedures the plan. The plan’s five key issue areas for identifying whether proposed include storm damage response and repair, projects would intrude on the viewshed maintenance practices, scenic and habitat and other vital resources. The plan also conservation, public access and recreation, provides a series of regulations to manage and plan implementation. the increasing levels of recreational visitors along the Highway 1 corridor. It The California Department of Transportation recommends that additional funding from (Caltrans or Department) engaged a Steering federal and state governments be granted Committee made up of land managers, prior to opening more public land for elected officials, agencies, and residents to recreational use. Policies for recreation identify management strategies that preserve, management and public access to the protect, and restore the scenic, natural, shoreline and trails are described. and cultural character and qualities of the highway. Seventeen Steering Committee The vision discussed in the Land Use members ratified the plan by signing the Plan is “to preserve for posterity the acknowledgement page. incomparable beauty of the Big Sur country, its special cultural and natural resources, its Guidelines were developed to address landforms and seascapes and inspirational corridor aesthetics, landslide management vistas. To this end, all development must and storm damage, and vegetation harmonize with and be subordinate to the management. A common vision for the wild and natural character of the land.” corridor was established. This vision describes “the essential corridor experience (as) safe, Related Goals, Values, and Principles human-scale travel to and through the rugged ▪ Safeguard Big Sur’s natural resources. spectacular beauty of the Big Sur Coast.” ▪ Preserve scenic resources and restore the natural beauty of visually degraded Related Goals, Values, and Principles areas. ▪ Provide a framework for restoring, maintaining, and preserving the natural ▪ Protect Highway 1’s function as a and scenic character of the corridor while scenic recreational route and maintain/ continuing to operate the highway in a enhance its aesthetic beauty. safe and efficient manner. ▪ Minimize development on the coast ▪ The need to provide access must uphold and preserve the coast as a scenic area. the value of preserving the informal ▪ Emphasize visual access to the visitor experience and be balanced with shoreline and direct development out of adequate resource protection to ensure the viewshed to preserve resources and appreciation and enjoyment of these balance coastal access needs. resources for generations to come. Big Sur Coast Highway ▪ Communicate essential traveler Management Plan information. The Big Sur Coast Highway Management ▪ Promote a non-motorized network for Plan is departmental policy and was public access that balances recreational approved in March 2004. It applies to opportunities with use of the highway a 75-mile stretch of Highway 1 from the by motor vehicles and protection of sensitive resources, private properties, and Carmel River in Monterey County to San community values. Carpoforo Creek in San Luis Obispo County. A Caltrans department policy, the ▪ Support the recreational value of traveling the Coast Highway. plan compiles major corridor issues and sets correlated strategies and actions to guide ▪ Be guided by the capacity of the Big Sur Coast to educate and inspire. and inform future decisions. The document includes an in-depth review of the intrinsic qualities that make the corridor unique, identifies issues and concerns, outlines an action plan for strategic management, and sets forth a structure for implementing
Chapter 1 | Introduction 3 DEFINING THE CORRIDOR For the purposes of this plan, the Big Sur Coast Highway includes Highway 1 and Monterey its surrounding context. The study area Carmel-by-the-Sea included different jurisdictions and extends from Rio Road, just east of Carmel-by-the- Sea in Monterey County, south to the SR 46 intersection in San Luis Obispo County. The corridor is designated an All American Road. The Big Sur Coast Highway portion (northern 72 miles) was designated in 1996 and the designation was extended to San Luis Obispo in 2002. Big Sur P R L o s O P a d r e s The Big Sur Coast is renowned for its Posts J scenic beauty, history, ecology, recreation E N a t i o n a l C Forest opportunities, and the roadway and bridges. T
Skirting the Pacific Ocean, the highway CO affords dramatic views of the rugged R R Lucia F o r t coastline and Redwood forest. The scenery I and recreation opportunities make the D H u n t e r Plaskett O Liggett highway an attractive destination. Visitors R may stay overnight, visit a portion of Gorda corridor on a day trip, or take a scenic drive Monterey County through. San Luis Obispo County The Coast Highway Management Plan used Ragged Point widths associated with different resources to define the corridor influence area. The Sustainable TDM Plan uses a similar San Simeon 46 strategy. The viewshed corridor includes the foreground, middleground, and Cambria background areas that can be seen east and west of the highway. And the recreation corridor considers those trails, lands, and Figure 1: Corridor Project Area recreation destinations that are accessed from the highway. In summary, the corridor includes not only the highway right-of-way and its enhancements, but also the adjacent and contextual lands and views accessed and visible from the roadway. Crossing two counties and providing access to multiple state parks, a national forest, and wilderness; multiple land managers, agencies, and organizations either operate in the corridor or are directly impacted and influenced by the highway. The study area also encompasses multiple planning areas as defined by the Big Sur Coast Land Use Plan and the Coast Highway Management Plan. Private lands and homes are also located throughout the corridor. Therefore, the collaboration of many stakeholders is essential to develop framework strategies to address needs.
4 Chapter 1 | Introduction Big Sur Highway 1 Sustainable TDM Plan VISION VALUES, GOALS, AND The Management Plan’s vision builds OBJECTIVES from the vision and values presented in The Steering Committee engaged in a the Big Sur Coast Land Use Plan and the facilitated exercise to identify the values Big Sur Coast Highway Management Plan. they felt were most important to manage The vision describes what the Sustainable the corridor. Each individual identified TDM Plan seeks to achieve, with a specific their top three values and then worked in focus on alternative ways to access and small teams of four to eight to develop experience the corridor. group values and goals. These values and goals are used to shape and inform corridor Sustainable TDM Plan Vision: strategies. Preserve the rugged and Pl a n Va l u e s ▪ Organized yet independent travel scenic nature of the Big Sur experience ▪ Iconic visual access is of primary experience for all people importance ▪ Respect for environment and through balanced, adaptive community ▪ Responsive and action-oriented with management strategies that adaptive and innovative strategies ▪ Balanced encourage the use of transit ▪ Inclusive Plan Goals and Objectives and active transportation ▪ Incorporate and build upon local land use planning (mandatory) to enhance the travel ▪ Reduce the number of single-occupant vehicles along the highway experience and support ▪ Increase the use of transit, shuttles, and biking to key destinations sustainable corridor access. ▪ Reduce the impacts of peak visitor use ▪ Provide tools and management strategies that address undesirable visitor behavior related to parking and recreation access ▪ Increase user information and provide static or real-time travel information ▪ Increase the use of electric vehicles by identifying infrastructure opportunities ▪ Create partnerships and identify funding strategies
Chapter 1 | Introduction 5 PLANNING PROCESS The Sustainable Transportation Demand Management Plan was developed in collaboration with federal, state, and local agencies and organizations and community groups. Because of the special nature INVENTORY & of the corridor, multiple opportunities were provided to engage with residents ANALYSIS and to coordinate with land managers and enforcement agencies. A Steering Committee was formed and meetings were held in both the northern and southern areas of the corridor. Members included INITIAL FINDINGS, residents, land managers, governing agencies, VISION & GOALS partners, and enforcement agencies. Public input sessions were also held in both northern and southern locations. Meetings were coordinated with the weekly timing of the quarterly Big Sur Multi-Agency Advisory INITIAL Council (BSMAAC) meetings and project STRATEGIES updates and input opportunities were provided during those sessions. A website was also launched to gather e-mail sign-ups and to provide a venue for public comment on the draft plan. REFINED Overall, four public workshops were STRATEGIES conducted, four updates were provided at Community & Stakeholder Collaboration BSMAAC meetings, and several Steering Committee meetings were facilitated. The outreach and engagement was PLAN coordinated with every stage of the project: data gathering, development of strategies, DOCUMENTATION and plan documentation. This allowed for public comment and stakeholder input to drive idea generation and enabled the plan to more richly represent the needs and Figure 2: Project Process opportunities of the corridor.
Stakeholder Meeting in Monterey, 2019 Public Workshop Question and Answer in Carmel-by-the-Sea, 2019
6 Chapter 1 | Introduction Big Sur Highway 1 Sustainable TDM Plan Chapter 1 | Introduction 7 PROJECT TITLE | Project City, State
Big Sur Highway 1 Sustainable TDM Plan Chapter 2 Elements of the Plan
Chapter 2 | Elements of the Plan 9 Plan Components The Big Sur Highway 1 Sustainable Transportation TRANSIT & Demand Management Plan builds upon the values SHUTTLE SERVICES and strategies established by the Big Sur Coast Highway Management Plan. It does not replace previous plans. Instead, it creates a framework to TRAVELER address recent challenges and consider how transit, INFORMATION sustainability, and related enhancements can be part of the Big Sur experience.
The Sustainable Transportation Demand Management Plan INFRASTRUCTURE includes the following components: ENHANCEMENTS Chapter 1: Introduction describes the purpose, vision, and goals of the Management Plan and summarizes its relationship to the Big Sur Coast Highway Corridor Highway Management Plan and the Big Sur Coast Land Use Plan. ACTIVE Chapter 2: Elements of the Plan summarizes the purpose of each TRANSPORTATION chapter and plan organization. Chapter 3: Existing Conditions provides an overview of the corridor context and setting as it relates to the surrounding communities, viewsheds, natural resources, transportation, recreation, and electric vehicle charging locations. DATA COLLECTION Chapter 4: Issues and Challenges identifies key issues & ANALYSIS and concerns that were identified through analysis and the stakeholder and public process. Themes that are discussed include transportation, the corridor experience, technology infrastructure, and electric vehicle charging infrastructure. PARKING Chapter 5: Corridor Transportation Demand Management MANAGEMENT & Opportunities outlines how transportation demand management ENFORCEMENT strategies could be used to address issues and challenges and establishes considerations for providing publicly-accessible electric vehicle charging locations. Chapter 6: A Path Forward summarizes the continuation of partnerships and establishment of roles, responsibilities, and Figure 3: Transportation Demand agreements necessary to achieve the Plan’s goals. Management Toolkit Categories
10 Chapter 2 | Elements of the Plan Big Sur Highway 1 Sustainable TDM Plan SUPPORTING PRODUCTS The document includes a toolkit of transportation demand management strategies that can be used as a resource for managing rural, two-lane highways with community and visitor demands similar to the Big Sur Coast. The management strategies are organized into six categories. The toolkit includes a description of the strategy and examples of its application. The appendix includes studies, assessments, and memos generated throughout the planning process. Stakeholder and public comments are captured and summarized. Supporting reference material is also included to consolidate information into an easy to access reference guide for future use. RELATIONSHIP TO OTHER PLANS As previously discussed, this document is intended to work in tandem with other planning studies and management plans to address corridor issues. As part of the planning process numerous plans were referenced and reviewed. Of those documents, 18 plans are summarized in the Existing Conditions and Plan Resource Document located in the appendix. These plans are listed below in chronological order. The Big Sur Coast Highway Management Plan and the Big Sur Coast Land Use Plan were developed as part of robust community outreach efforts. Therefore, the plans guided the development of values and strategies expressed in this document. ▪ Carmel Area Land Use Plan (1985) ▪ Big Sur Coast Land Use Plan (1986, Amended 1996) ▪ Big Sur Coast Highway Management Plan (2004) ▪ Monterey Salinas Transit (MST) Business Plan and Short Range Transit Plan (2006-2008) ▪ Central Coast Intelligent Transportation Systems (ITS) Implementation Plan (2007) ▪ San Luis Obispo County North Coast Area Plan (2007) ▪ Electric Vehicle Infrastructure for the Monterey Bay Area (2013) ▪ North Coast Scenic Byway Corridor Plan (2014) ▪ Plug-in Electric Vehicle (PEV) Readiness Plan for Ventura, Santa Barbara, and San Luis Obispo Counties (2014) ▪ Lobos-Corona Parkland Project (2014-Present) ▪ County of San Luis Obispo Bikeways Plan (2015-2016) ▪ Caltrans Transportation Corridor Concept Reports: District 5 (2017) ▪ Toward an Active California State Bike and Pedestrian Plan (2017) ▪ Carmel Area State Parks General Plan Traffic and Parking Study (2018) ▪ Monterey County Active Transportation Plan (2018) ▪ Monterey County Regional Transportation Plan (2018) ▪ Park It! (2019) ▪ SLOCOG Regional Transportation Plan (2019)
Chapter 2 | Elements of the Plan 11 AUTHORITY AND APPLICABILITY The Big Sur Coast Highway Management Plan (CHMP) was prepared under the authority of the National Scenic Byways program and revised and updated the original 1996 byway plan. This Sustainable Transportation Demand Management Plan does not replace the CHMP. Rather, it exists in combination with the CHMP (which provides guidelines for how Caltrans manages the highway), the Big Sur Coast Land Use Plan (which is the law that governs land uase), and other guiding documents to establish the framework for managing the corridor and addressing shared issues. The Management Plan is not a regulatory document and is not intended to be used for regulatory purposes. It does not change existing jurisdictional boundaries or direct land use, management decisions, or activities on private or public lands. The Plan is intended to provide a framework for continued engagement and collaboration among the public and land managers. It brings together partnering agencies to consider TDM strategies to resolve corridor issues as they arise. Although Caltrans led the development of the Management Plan, strategies and opportunities are not the sole responsibility of the Department. Collaboration and commitment by public and private land managers, property owners, agencies, and organizations is necessary for success. Partners and stakeholders are not obligated to any actions. Rather, the opportunities described in the Plan are established to illustrate strategies through which the corridor vision can be achieved and the corridor managed in a collaborative framework. No single agency can address the issues associated with visitation demand and recreation access desires along the Big Sur Coast Highway. Similar to the CHMP, this document anticipates shared ownership over decision-making and for further developing, refining, and carrying out Plan opportunities. Fulfilling the vision of the Plan requires continued cooperation and partnership.
Big Creek Bridge (Image courtesy of Caltrans)
12 Chapter 2 | Elements of the Plan Big Sur Highway 1 Sustainable TDM Plan ENVIRONMENTAL COMPLIANCE Consistent with the CHMP, this Management Plan provides an overall approach for managing the corridor. Individual activities and practices pertaining to the highway are consistent with the Department of Transportation’s existing authority and responsibility to maintain and operate the highway. The Plan does not alter the Department’s or any other agency’s obligations to comply with state and federal environmental laws and regulations on individual projects or actions. Corridor Management Plans are not subject to compliance under the National Environmental Policy Act (NEPA). The Sustainable Transportation Demand Management Plan is also not subject to review under the California Environmental Quality Act (CEQA). CEQA Section 15262 Feasibility and Planning Study states that a project involving only feasibility or planning studies for possible future actions which the agency has not approved or funded does not require preparation of an Environmental Improvement Report (EIR) or Negative Declaration. It does require consideration of environmental factors. Consistent with this exemption, the Management Plan considers the corridor’s environmental factors and approval of the Management Plan does not commit the Department or other agencies to later activities or any specific project. Future work to implement projects which have the potential for causing a significant effect on the environment will require environmental permitting and compliance with CEQA and NEPA. Should funding be pursued and obtained for projects, site specific studies would be required to develop detailed designs which would at that time require complete environmental review pursuant to CEQA and NEPA.
Salmon Creek Falls
Chapter 2 | Elements of the Plan 13 PROJECT TITLE | Project City, State
Big Sur Highway 1 Sustainable TDM Plan Chapter 3 Existing Conditions
Chapter 3 | Existing Conditions 15 This chapter describes the setting and Big Sur—and the many different land intrinsic values of the Big Sur coast. Big managers, facilities, and “hotspot” areas. Sur is unlike any other part of the country, with rugged cliffs that appear to fall into COMMUNITY CONTEXT the ocean, recreational opportunities that When talking about the community of Big cannot be experienced elsewhere, and a Sur, we must look at development patterns narrow two-lane highway set into the steep to understand how they have been clustered mountainside. The raw, untouched beauty in isolated locations. The corridor includes of Big Sur is what draws millions of people long stretches of undeveloped areas along to visit the area every year, serving as a the roadway, with several small villages stark contrast to the urbanized centers dotting the coast. These villages range throughout the state. in size from individual homes to entire development areas such as the community The setting of Big Sur includes different of Big Sur. The size of these villages elements. It is made up of community generally correlates with proximity to elements relating to the people who larger urban locations. Their locations are live, work, and travel through Big Sur; informed by surrounding land uses and the the history of the area; and the cultural topography of the area. qualities that make Big Sur unique. From a scenic context, it includes elements such Carmel Highlands is the most populated as the viewshed to the coast and many area of the corridor and is closest to different land use types and landscape Carmel-by-the-Sea. The middle to southern zones. Environmental elements such as sections of the corridor are the least geology, climate, hydrology, and land use populated but are also surrounded by public have contributed to much of the existing lands. Residential and commercial areas are conditions and the culture associated with scattered along the corridor. Even more Big Sur. Transportation elements include so, development in the middle section of the roadway, transit, active transportation, the corridor is limited by the steepness of and existing electric vehicle infrastructure. the terrain and buildable areas. Big Sur, Lastly, the chapter discusses recreation— the town, is the “focal point” of Big Sur the primary reason many people visit residents. It is where a majority of events take place and where the highest density of
The Santa Lucia Mountains
16 Chapter 3 | Existing Conditions Big Sur Highway 1 Sustainable TDM Plan Dramatic views of the coast are characteristic of Big Sur services and amenities for locals are within Land Use Plan designated the area within the corridor. sight from Highway 1 and major public viewing areas as the “critical viewshed”. The community of the Big Sur coast is Development is restricted so that it cannot small, but the people who live there are be visible from the highway or designated drawn to Big Sur for its scenic beauty and viewing areas. The major public viewing isolated setting. The community itself areas include turnouts, beaches, and the is difficult to define because the people following specific locations: who live there come from a wide range of lifestyles, income, socioeconomic ▪ Soberanes Point, background, and traditions. ▪ Garrapata Beach, ▪ Abalone Cove Vista Point, SCENIC CONTEXT ▪ Bixby Creek Turnout, In 1937, the completion of the San Simeon- Carmel Highway (referred to as Highway ▪ Hurricane Point Overlook, 1 and Big Sur Coast Highway in this ▪ Upper Sycamore Canyon Road (from document) allowed people to experience Highway 1 to Pais Road), the scenic beauty of the Big Sur coast ▪ Pfeiffer Beach/Cooper Beach, and first-hand from their personal vehicles. ▪ Specific views from Old Coast Road. Subsequently, trail networks and park units The viewshed is the “visual envelope” that were established and offer other ways to a person can see from a specific location. experience Big Sur’s scenic grandeur and They are generally quite large—especially understand the history of the area. The in locations as vast as Big Sur. Often scenic qualities of Big Sur are what leave a defined by topographic features, they lasting impression on visitors. encompass many different visual elements and landscapes. Corridor Viewshed The raw, untouched beauty of Big Sur is New development through Big Sur has what draws millions of people to visit the relatively ceased since the implementation area every year, serving as a stark contrast of the Big Sur Coast Land Use Plan, to the urbanized centers throughout the keeping the viewshed to the coast open. state. The development pattern in Big Sur has remained largely the same as it has for Policymakers, business owners, and decades, except for the fact that the homes residents alike maintain preservation of along the coast are larger than the quaint the land in its natural state as the highest cabins that preceded them. priority. A priority is maintaining views to the coast. The 1986 Big Sur Coast
Chapter 3 | Existing Conditions 17 Residences and Monterey mountains Carmel-by-the-Sea Point Hwy 1 Lobos SNR Carmel Valley Garrapata Travel lanes 10-13’ SP Shoulders 3-4’ (up to 20’ near Point Lobos)
CARMEL HIGHLANDS ZONE
Rio Road To Andrew Molera State Park Andrew Molera SP Redwood Big Sur forest Pfeiffer Big Hwy 1 Sur SP inland Posts
Julia Pfeiffer Burns SP Los Padres Travel lanes 10-13’ National Forest Shoulders 4-20’ Slates Hot REDWOOD FOREST ZONE Springs Andrew Molera State Park To Grimes Canyon Lucia Zone prone to Limekiln SP mudslides and rockfall Hwy 1 100-500’ above sea level Dramatic cliffs Plaskett Gorda
Travel lanes 9-12’
Shoulders 1-3’ Monterey County SEA CLIFF ZONE Ragged San Luis Point Obispo County Grimes Canyon To Ragged Point Hearst San Vegetated slopes Simeon SP Hwy 1 ~100’ above sea level Sandy coves San Simeon
Travel lanes 11-12’ Shoulders 8’+ Cambria COASTAL TERRACE ZONE
Ragged Point To Cambria
Figure 4: Character Zones throughout the Corridor
18 Chapter 3 | Existing Conditions Big Sur Highway 1 Sustainable TDM Plan Character Zones The corridor can be broken down into four distinct “character zones” defined by their scenic qualities, topography, distance from the coast, and land uses. ▪ Carmel Highlands Zone: This zone has two sub-sections: north and south. ▪ The northern section runs from the intersection of Highway 1 and Rio Road in Carmel-by-the- Sea to Malpaso Creek, just south of the residential area known as Carmel Highlands. This area is at the northern terminus of the corridor and is dotted with side streets and residences. The section is generally associated with Carmel- by-the-Sea and the larger Monterey Roadway character in the northern section Peninsula. Views to the coast are of the Carmel Highlands Zone more filtered, as Highway 1 winds through inland areas, past Point Lobos State Natural Reserve (SNR) and residential developments, occasionally opening to the ocean. Shoulder parking in this zone is extensive at Point Lobos SNR. ▪ From Malpaso Creek south to Andrew Molera State Park, residential areas and dense shrouds of vegetation taper away, opening up vast views to the coast. This is what many think of as the northern gateway to Big Sur. The zone has pullouts and public trail access to the ocean within Garrapata State Park and Andrew Molera State Park. The cliff exposure is less steep than southern sections and Roadway character in the southern section the mountains do not terminate of the Carmel Highlands Zone into the ocean as dramatically as they do further south. Shoulder widths along the roadway vary up to four feet, with generally no usable shoulder. Roadside parking associated with these user trails can be limited and potentially undesirable due to poor sight distances and uneven parking surfaces. The areas used are narrow and vehicles park close to or over the travel lane. ▪ Redwood Forest Zone: The approximately 10-mile segment from Andrew Molera State Park to Grimes Canyon Road is inland from the coast and travels through forested lands. Roadway character in the Redwood Forest Zone
Chapter 3 | Existing Conditions 19 This character zone encompasses the coastal redwood forests of Pfeiffer Big Sur State Park, as well as the small community of Big Sur. It is generally considered the “community hub” of the Big Sur coast—where a bulk of lodging, dining, and recreation opportunities are provided for visitors and amenities are provided for residents—such as the Big Sur Post Office, Henry Miller Library, and various employers. The roadway through this segment has more generous vertical and horizontal curves than to the north and south. Shoulders vary from two to four feet wide and are continuous through most of the zone. Several 25- to 100-car parking areas exist along the highway near Pfeiffer Big Sur State Park. Roadway character in the Sea Cliff Zone ▪ Sea Cliff Zone: From the intersection with Grimes Canyon Road to Ragged Point, the Santa Lucia Mountains cascade dramatically into the Pacific Ocean. The zone represents many visitors’ visual image of Big Sur. Highway 1 is between 100 to 500 feet above sea level, characterized by sharp, steep curves, limited parking, short driver sight distances, and no usable shoulder. Rock falls and mudslides— which regularly close Highway 1— occur in this vicinity and more severely than in the past. This zone provides the most direct access to the Los Padres National Forest, wilderness areas, and several state parks. ▪ Coastal Terrace Zone: From Ragged Point south through the village of Cambria, Highway 1 travels along a Roadway character in the Coastal Terrace coastal terrace within 100 vertical feet from sea level. This zone has relatively level terrain with expansive views of grassy slopes and sandy coves. Shoulders are generous—about 8 feet or more, which encourages recreational cycling. There are numerous public coastal access points with large off- highway parking areas west of the highway. These parking areas generally have a left turn pocket. The Coastal Terrace Zone passes through larger residential communities of San Simeon and Cambria. This zone has popular attractions such as Hearst Castle and Piedras Blancas Elephant Seal Rookery.
20 Chapter 3 | Existing Conditions Big Sur Highway 1 Sustainable TDM Plan ENVIRONMENTAL CONTEXT period between November and April, Climate making the area prone to these patterns. Big Sur has a Mediterranean climate that Increased wildfire severity can leave characterizes much of coastal California. exposed slopes. Intense winter storms can It has mild year-round temperatures with follow and magnify the impact of mudslides dry summers and rainy winters. Coastal and soil erosion. Most recently, rains from fog is a typical occurrence, primarily from the El Niño winter and spring of 2017 led spring to summer. It is most common in to immense roadway damage from multiple mornings and evenings, but can subsist all mudslides and bridge damage, closing day depending on location, weather, and Highway 1 to through traffic for more than elevation. Precipitation falls the most to the a year. west of the Santa Lucia mountains, before transitioning to mountains greater than Ecolog y 5,000 feet high. Many different plant communities Periodic wildfires are part of the natural exist within the study corridor. These ecology of the area. Once the USFS took include native chaparral, redwood control of public lands in the 20th century forests, grasslands, dune/coastal scrub, they enforced strict fire suppression policies, oak forests, cypress forests, pine forests, leading to fuel loading and increased intertidal zones, cottonwood-sycamore wildfire severity since the 1970s. The riparian forests, bay forests, and riverine. 2016 Soberanes Fire was, at the time, the Additionally, several special-status species most expensive wildfire to suppress in occur within the corridor. California’s history. One thing that can have drastic effects on plant habitats are exotic species. Exotic Hydrolog y plant species can become invasive. Most Lack of soil permeability and steep slopes known invasive species are concentrated in much of Big Sur means that most along Highway 1 and in developed areas. rainfall becomes surface runoff and does These include invasive species such as not infiltrate the soil to recharge the pampas grass, ice plant, French broom, groundwater supply. Italian thistle, mustard, and fennel. Extreme cases of soil erosion occur when Sandy coves and cobble beaches are intense rains pelt the area consistently for limited to areas near the mouths of days and weeks at a time, leading to soil streams and south of promontories. Most saturation and slides. Ninety percent of Big of the coastline is rugged bluffs that Sur’s rainfall occurs during a six-month do not facilitate accessible recreational opportunities.
Monastery Beach is one of the few accessible beaches along the Highway
Chapter 3 | Existing Conditions 21 TRANSPORTATION CONTEXT Recreation-related traffic makes up Overall Study a large percentage of trips through Corridor the Big Sur corridor during the peak summer months. Use of the corridor (122 Respondents) to rth No is year-round, with the highest use o r ia Entr N t V y h n R periods concentrated in spring and r o u summer months. t u t e
e
68% R Based on a 2018 postcard survey that 73% received a small number of responses, more vehicle trips originate from ugh th Monterey County than in San ro e h C o Luis Obispo County. The highest T l r r e i
d
traffic volumes are in the northern v
o
a
r
portion of the corridor. Due to the 27% r (69 Respondents) T limited sampling size of the survey, to th So additional permanent data collection or u N t or the study of cell phone data or h license plate origin/destinations is recommended. 7% The average daily traffic volumes
(ADT) also show a decrease toward Northern Survey Respondents from Area the center of the Big Sur corridor. This is due to several reasons: Monterey County Postmile 33.9 (Partington Cove) ▪ More people live in the northern portion of the corridor. ▪ There are more opportunities for day trips from Carmel-by-the-Sea area than the southern portion of th to N the corridor. ou o S rt ▪ Travel in the southbound h direction gives visitors a better view of the coastline. 15% Roadway The transportation concept for Highway 1 through Big Sur was to have a 32-foot paved width, with two 12-foot lanes and 4-foot paved shoulders. While some areas meet to th So these requirements, much of the ou u S t h road lane widths are discontinuous (53 Respondents) because of the steep terrain. Having a continuous lane width is ideal from 47% an operational standpoint. In many locations the available road width is so narrow that lanes are sized down to 10-feet wide with no shoulders.
Creating a continuous 4-foot Southern Survey Respondents from Area shoulder would require significant landform alteration or support structures, and would be unlikely to change the transportation demand in Figure 5: Travel Origin- Destination Results of Big Sur. 2018 Postcard Survey
22 Chapter 3 | Existing Conditions Big Sur Highway 1 Sustainable TDM Plan Travel Patterns Partington Cove) versus the northern half. Based on a windshield postcard survey Respondents receiving the postcard in the conducted in August and September 2018 southern half were more likely to arrive that received 122 responses, the majority from and depart to the south (47 percent) (73 percent) of respondents indicated that while those in the northern half were they were returning from the direction more like to arrive from and depart to the they entered (entering from the north and north (68 percent). The overall proportion leaving to the north, or entering from the south and leaving to the south). Postcards of those departing in the direction they were distributed to vehicles parked along arrived from was slightly higher (77 the roadside. Roughly half of the completed percent) in the northern half than in the surveys were received from the southern southern half (68 percent). portion of the corridor and the other half were from the northern portion. This data Sixty-one percent of respondents indicated does indicate transit has the potential to they were staying only for the day, and 39 work for the corridor. percent staying overnight. Of those staying overnight, the average length of stays was To gain more understanding about trip 2.9 nights, with a relatively even number patterns, the results were analyzed for the staying one, two or three nights and a southern half of the study corridor (south smaller proportion staying longer. of Monterey County Mile Post 33.9 at
Exit Route - # Responses Exit Route - % Responses North South East North South East Total Study Corridor North 58 9 2 48% 7% 2% Entrance South 17 31 2 14% 25% 2% Route East 2 1 0 2% 1% 0% % Return From Direction of Entrance 73% % Traveling Through 27%
Southern Portion (South of Monterey MP 33.9) North 11 4 1 21% 8% 2% Entrance South 8 25 2 15% 47% 4% Route East 1 1 0 2% 2% 0% % Return From Direction of Entrance 68% % Traveling Through 32%
Northern Portion (North of Monterey MP 33.9) North 47 5 1 68% 7% 1% Entrance South 9 6 0 13% 9% 0% Route East 1 0 0 1% 0% 0% % Return From Direction of Entrance 77% % Traveling Through 23% Sources: 2018 Postcard Survey, 122 total responses Table 1: Travel Origin-Destination Results of 2018 Postcard Survey
Chapter 3 | Existing Conditions 23 Figure 2: SR 1 Big Sur Peak Month Average Daily Traffic Volumes
18,000
16,000
14,000
12,000 Way Traffic Volume Traffic Way - 10,000
8,000
6,000
4,000
2,000 Peak Month Average Daily 2 Daily Average Month Peak 0
2006 2011 2016
Figure 6: Highway 1 Peak Month Average Daily Traffic Volumes through Big Sur (data reflects actual counts and not projections) Turnouts Turnouts are operational features consisting of paved or unpaved areas beyond the highway shoulder where slower moving EXISTING vehicles can safely move off the travel way SOUTHBOUND and allow following vehicles to pass. Based TURNOUT on site reconnaissance during the summer of 2019, signed and paved turnout locations only existed south of MC Postmile 40.0. EXISTING The CHMP states that when turnouts and NORTHBOUND left turn lanes are warranted, they are the TURNOUT most readily available way to improve traffic operations within the corridor (CHMP, page 32). Consolidating highway access points, such as at driveways and side streets, can also improve traffic operations. Undesignated Roadside Parking An inventory of informal/undesignated roadside areas was conducted in the summer of 2018. Locations that could accommodate five or more vehicles and showed indication of motorist parking activity were mapped. Overall a total of 110 roadside parking areas were documented. Observed parking activity is highest at recreation areas and photo sites such as Point Lobos SNR, Garrapata State Park, 0 2 4 8 miles Bixby Creek Bridge, Sycamore Canyon Road, and McWay Falls. Figure 7: Existing Paved & Signed Slow Vehicle Turnouts
24 Chapter 3 | Existing Conditions Big Sur Highway 1 Sustainable TDM Plan Traffic Flow lane roadways (Appendix B). Compared Appropriate flow of traffic differs to similar rural roadways, Highway 1 has depending on the user. Visitors who are a lower density of intersections, which taking in the view may prefer driving at a contributes to lower crash rates. It should slower speed and may not be as bothered be noted that the data stored in SWITRS by delays. Locals more focused on getting only reflects crashes that were reported to their destination than viewing scenery, to CHP. It does not account for the may consider the typical flow of traffic unreported “close calls” that could happen unacceptable. Law enforcement and within the corridor or unreported minor emergency services may be unable to accidents or incidents not reported due to respond to critical emergencies in time lack of cell coverage. due to an obstructed roadway. Ingress and egress, such as side roads and driveways for Bicycling residential, commercial, and recreational Highway 1 is a designated portion of the access, also affect traffic flow. The highest Pacific Coast Bike Route, known for its concentration of these within the corridor world class views. It is popular with hardy are in the community of Big Sur and the cyclists touring the coast on multi-day trips Carmel Highlands area. and with large organized cycling events. Given that the prevailing winds are from Collisions the northwesterly direction, cyclists most Vehicle, pedestrian, and bicycle collisions commonly travel from north to south, are reported to and stored in the California similar to people traveling by car. This Highway Patrol Statewide Integrated Traffic allows a generous tailwind and better views Records System (SWITRS). In a ten-year of the coastline. period from 2008 through 2017, there were on average 23.3 reported crashes per year The highway is a designated Class 3 bicycle within the study area. Twenty-four percent route, meaning cyclists share the lane with of the incidents occurred along the 6.2 vehicles and do not have designated bicycle miles of Highway 1 within Andrew Molera lanes. State Park and 18 percent occurred in the 3.2 miles between Point Lobos SNR and Pedestrians Though not common, people do walk the northern boundary of Garrapata State along the Highway 1 corridor. Pedestrian Park. use is highest near larger recreational and The average crash rate for the Big Sur commercial areas such as the community of corridor is lower than the statewide average Big Sur and Point Lobos SNR. Elsewhere of collisions on similar rural two- or three- in the corridor, pedestrians are seen walking between overlooks and their cars.
Visitors walk along the highway to Point Lobos SNR (Image by LiPo Chang / Bay Area News Group)
Chapter 3 | Existing Conditions 25 California Coastal Trail MONTEREY The California Coastal Trail will be a 1,200- Monterey mile network of paved and unpaved trails TRANSIT PLAZA running the length of the California coast. Portions of the trail are in place along the Big Sur Coast and planning continues to identify opportunities for completing the DEL MONTE trail system through the corridor. Identified CENTER as being of statewide significance for 6TH ST & nearly five decades, the California Coastal MISSION ST Trail also services local and regional Carmel-by- the-Sea CROSSROADS communities. Both the 1986 Big Sur SHOPPING CENTER Coast Land Use Plan and the California Coastal Conservancy report Completing the POINT California Coastal Trail provide blueprints LOBOS for this active transportation facility that SNR is of lasting value for all Californians and enables passive enjoyment of Big Sur’s coastal treasures for residents and visitors alike. Garrapata SP
MST LINE 22
BIXBY CREEK BRIDGE
The MST bus stop at Nepenthe Andrew Molera SP
Route TA Rou ANDREW MOLERA SP ST 2 R te M 2 O 1 L 5 S BIG SUR RIVER INN Big Sur
16.2 58.5 Pfeiffer Big Sur SP
Average daily Average daily ridership from ridership from 2017-2018 2017-2018 (data from August (data from July NEPENTHE 2017 to July 2018) 2017 to June 2018) Figure 8: Existing MST Line 22 Service
26 Chapter 3 | Existing Conditions Big Sur Highway 1 Sustainable TDM Plan Transit HEARST CASTLE Two lines of public transportation VISITOR CENTER service the Big Sur corridor and are run (WEEKENDS ONLY) by Monterey-Salinas Transit (MST) and the San Luis Obispo Regional Transit Authority (SLORTA). It is not possible to travel the entire corridor via public transit since a 61-mile stretch is not serviced by public transit, from the community of Big San Simeon HEARST DR & SAN SIMEON / CASTILLO DR & OTTER WAY Sur in Monterey County to Hearst Castle in San Luis Obispo County. ▪ MST Route 22: The MST Route 22 connects downtown Monterey and Carmel-by-the-Sea with the community of Big Sur. The line runs three times daily during summer months and BURTON DR twice a day on weekends during the & MAIN ST winter. The schedule of the line is not convenient for commuters but does Cambria
provide opportunities for recreational SLORTA LINE 15 day trips into the Big Sur area and options for Big Sur area residents to travel north for day trips in the summer. The bus service runs 7 days a week, 46 making 18 stops. The ridership from August 2017 to July 2018 was 5,922 passengers per year, with average daily ridership of 7.2 passengers on weekdays, 4.7 passengers on Saturdays, and 3.8 passengers on Sundays. ▪ SLORTA Route 15: The SLORTA Route 15 services Morro Bay, Cayucos, Cambria, and San Simeon. This coastal service runs 7 days a week, making 42 stops. The Hearst Castle Visitor Center is only served on weekends. In Morro Bay, regional connections are available to San Luis Obispo and beyond. Cayucos Ridership on this route in Fiscal Year 2017/18 as reported to NTD was 21,372 CAYUCOS DR passengers per year, with average daily & OCEAN ST ridership of 65 passengers on weekdays, 54 on Saturdays and 37 on Sundays. ▪ Private Shuttles: There are a variety of private and lodging shuttles that serve the Big Sur area. In addition, the Big Survice pilot project provided a shuttle service between Big Sur Station and the Pfeiffer Beach Day Use Area in the summer of 2018. The Park It! effort is also planning a coordinated intercept parking and shuttle program for Point Lobos SNR. MORRO BAY PARK Morro Bay
Figure 9: Existing SLORTA Line 15 Service
Chapter 3 | Existing Conditions 27 ELECTRIC VEHICLE CONTEXT As electric vehicles become increasingly more affordable, electric vehicle infrastructure and charging locations are vital in determining the travel method people choose to visit Big Sur. If not enough facilities are provided, fewer people may opt to use electric vehicles in fear of running out of power in a remote location with spotty cell phone reception. Electric vehicle charging is available at 15 locations within the corridor, but the Hearst Castle Visitor Center is the only one in a public area, free of charge, and with a significant capacity. The remainder are reserved for people staying at overnight accommodations. Driving an electric car through Big Sur currently requires significant advanced planning, informing how far you can travel in a day and where you can stay the night. Electric vehicle charging station in Cambria
# Stations by Plug Type Community Location Use Limitations J- NEMA Tesla Wall 1772 14-50 Cambria Pines Lodge 2 1 - - Lodging Guests Only Lodging Guest, or $5 Bridge Street Inn - 1 - - per hour El Colibri Hotel & Spa 1 - - - Lodging Guests Only Cambria Cambria Beach Lodge 1 - - - Lodging Guests Only Sand Pebbles Inn 1 - - - Lodging Guests Only Blue Dolphin Inn 1 1 - - Lodging Guests Only Sea Otter Inn 2 - - - Lodging Guests Only Days Inn 1 - - - Lodging Guests Only Lodging or Dining San Simeon Lodge - 1 - - San Simeon Guest Hearst Castle Visitor Open 8AM - 5PM, No 6 5 - - Center Charge Esalen Esalen Institute 2 1 - - Guests Only Ventana Inn & Spa 3 - - - Lodging Guests Only Loma Vista Post Ranch Inn 3 - 1 1 Lodging Guests Only
Carmel Hyatt Carmel Highlands 2 1 1 - Lodging Guests Only Highlands Big Sur Big Sur Campground - - 1 1 $30 Sources: Plugshare.com, openchargemap.io, accessed 1/21/19 Table 2: Electric Vehicle Charging Stations
28 Chapter 3 | Existing Conditions Big Sur Highway 1 Sustainable TDM Plan HYATT CARMEL HIGHLANDS
BIG SUR CAMPGROUND
POST RANCH INN VENTANA INN
ESALEN INSTITUTE
Monterey County San Luis Obispo County SAN SIMEON AREA: Hearst Castle Visitor Center, San Simeon Lodge, Days Inn
CAMBRIA AREA: Sea Otter Inn, Blue Legend Dolphin Inn, Sand Pebbles !· Existing Electric Vehicle Inn, Cambria Beach Charging Station Lodge, El Colibri Hotel, Bridge Street Inn, Cambria Pines Lodge 0 2 4 8 miles 46
Figure 10: Existing Electric Vehicle Charging Stations
Chapter 3 | Existing Conditions 29 RECREATIONAL CONTEXT Recreational activities that use trails typically take place Recreation is an intrinsic quality of the corridor and is off the highway, but access to these activities is usually the chief reason so many people visit the area. By far the from the roadway. The recreational opportunities biggest recreational draw for visitors is touring through include hiking, backpacking, mountain biking on the area. People come to the area to drive down the graded dirt roads, and equestrian uses. Parking areas at famous stretch of coastline, enjoy the scenic qualities of popular trailheads can easily be overwhelmed, especially the area, take photographs from vista points, and picnic if people park overnight. One such area is the parking at day use areas or at roadside pullouts. The constrained lot at Big Sur Station, which also serves as the trailhead nature of the roadway and the fact that there are few for the popular Pine Ridge Trail and is needed for side roads for visitors to take, means that most visitors Caltrans operations. must stick to the highway when they visit. Like the development patterns of residential areas Coastal water recreation is largely constrained to the within Big Sur, recreation is constrained by the cobble coves and sandy beaches described in the topography of the area. While public land areas such Environmental Context section. These access points as the Los Padres National Forest are immense, actual to the ocean are few and far between and generally public access is limited to areas with topography that small in scale but offer pristine seclusion when not facilitates trail building and can be accessed from the crowded. Additionally, the area has spectacular surfing, highway. Since the Santa Lucia mountains arise from windsurfing, kiteboarding, and diving opportunities the Pacific Ocean so abruptly, there are relatively few for seasoned athletes. Rivers and creeks—such as the locations that provide access. Salmon Creek Falls near the county line—provide another form of water recreation and are accessible from parts of the highway or hiking trails.
Recreation opportunities in Big Sur
30 Chapter 3 | Existing Conditions Big Sur Highway 1 Sustainable TDM Plan CARMEL-BY-THE-SEA Legend
State Park Unit National Forest Other Federal Land Regional Park County Park City Park or Open Space Preserved Land
Wilderness Area Conservation Easement Restricted Access Lands BIG SUR Project Corridor
0 4 8 mi
Ownership There are more than 20 public land areas along the corridor, with various managing Monterey County agencies from federal, state, regional, and San Luis Obispo County local levels. The public lands are minimally developed and certain land areas, while publicly-owned, are not openly accessible by the public. The managing public agencies of lands in Big Sur are: ▪ California State Parks ▪ Monterey Peninsula Regional Park District SAN SIMEON ▪ United States Forest Service ▪ University of California (access 46 restricted to the public) CAMBRIA ▪ Bureau of Land Management ▪ Cambria Community Services District Note: Uncolored areas are privately owned Figure 11: Land Ownership
Chapter 3 | Existing Conditions 31 Facilities Facilities play a necessary part of the livelihood of Big Sur, since a popular tourist destination will only function as well as the amenities that are provided. These include public facilities—such as restrooms, visitor centers, ranger stations, trails, and day use areas—and private facilities—such as hotels and lodges, restaurants, and shops. Big Sur relies on public-private partnerships (PPPs) and multi-agency cooperation. There is one existing multi-agency facility in Big Sur at Big Sur Station, which was created in partnership by Caltrans, the USFS, and CSP. This location provides parking for wilderness trails and is the only visitor center in the corridor catering Hikers atop a vista point toward all of Big Sur. Hotspots Big Sur in its entirety is a recreation hub for the state of California, but specific areas within the corridor feature an abundance of recreation opportunities and are considered “hotspot” areas. The adjoining map shows these areas in the corridor. These target locations are those that are subject to the most severe transportation issues. TDM strategies and other collaborative corridor management efforts could help address the challenges.
Many visitor facilities are tucked away from view of motorists
32 Chapter 3 | Existing Conditions Big Sur Highway 1 Sustainable TDM Plan Point Lobos SNR
Soberanes Point Garrapata Beach
Bixby Creek Bridge
Pfeiffer Big Sur SP, Pfeiffer Beach, & Andrew Molera SP
Nepenthe & Henry Miller Library
McWay Falls & Julia Pfeiffer Burns SP
Sand Dollar Beach
Monterey County Salmon Creek Falls San Luis Obispo County
Piedras Blancas Elephant Seal Rookery Hearst Castle & San Simeon
Legend Moonstone Beach Hotspot Recreation Area & Cambria 46
0 2 4 8 miles
Figure 12: Hotspot Recreation Areas
Chapter 3 | Existing Conditions 33 PROJECT TITLE | Project City, State
Big Sur Highway 1 Sustainable TDM Plan Chapter 4 Issues & Challenges
Chapter 4 | Issues and Challenges 35 The issues and challenges of the corridor dictating which sights people visit. It were defined through analysis of the creates “bucket list” places, where people existing conditions, site reconnaissance, and go to the place, capture images proving feedback from the public and stakeholders. they were there, and move on to the next The issues that the Big Sur corridor faces location. are complex, but the issues reveal the core values shared by stakeholders and members The issues with these behavioral changes of the public. are that they concentrate visitation in certain areas, notably Bixby Creek CORRIDOR EXPERIENCE Bridge, Pfeiffer Beach, and McWay Falls. Visitation and User Behavior Behavioral changes not only concentrate Overall, population throughout California visitation in key destinations, causing a suite has increased rapidly and is projected to of environmental and transportation issues, reach 50 million people in 2050. The effects but they attract a different crowd of visitors of this population growth are especially to Big Sur as a whole. Recent grassroots evident in the nearby San Francisco Bay efforts such as the Big Sur Pledge have area, which is less that a 3-hour drive from been created to reverse these behavioral the corridor. The region experienced the trends and educate visitors on appropriate most rapid population growth in the state and respectful behavior. since the 2010 Census. Public Access and Recreation While available data does not indicate Recreational touring is the root cause of the exact levels of increased visitation, user congestion issues that Big Sur experiences. behavior has increasingly been a source of As discussed in the Existing Conditions conflicts and challenges in the past decade. chapter, recreational access is constrained These behavioral shifts are experienced by a number of factors, including a scarcity at many recreation areas throughout the of improved accessways (such as dedicated country. The promotion of specific Big bike and pedestrian facilities befitting the Sur experiences by marketing agencies, rugged character of Big Sur), as well as television shows, and—most notably— the steep topography of the area and other social media often encourage users to visit geographical features. This concentrates only a few locations which can quickly be recreational activities to certain locations overwhelmed. “Selfie culture” has become despite the large swaths of public lands ingrained in the way people travel, often that encompass the coast. These access
Annual Attendance % of Total State Park Unit Paid Day Free Day Camping Total Attendance Use Use Carmel River State Beach 6,447 132,281 0 138,728 6% Point Lobos State Natural Reserve 366,841 193,298 350 560,489 25% Garrapata State Park 480 166,663 0 167,143 7% Point Sur State Historic Park 5,134 666 0 5,800 0% Andrew Molera State Park 58,857 49,614 19,478 127,949 6% Pfeiffer Big Sur State Park 162,610 59,271 273,103 494,984 22% Julia Pfeiffer Burns State Park 105,137 213,599 2,120 320,856 14% Limekiln State Park 23,471 0 26,785 50,256 2% Hearst San Simeon State Park 0 268,623 98,129 366,752 16% Total 728,977 1,084,015 419,965 2,232,957 100% % of Total Attendance 33% 49% 19% 100% Source: Statistical Report - 2015/16 Fiscal Year, California State Parks Note: “Paid Day Use” at State Park units with no entry fees are taken from permits; actual use may not be reflected in numbers reported Table 3: Annual Attendance at Publicly Accessible State Park Units in the Study Corridor
36 Chapter 4 | Issues and Challenges Big Sur Highway 1 Sustainable TDM Plan areas can become easily overwhelmed by increases in visitation and changes in user behavior. Ways to expand access to these areas is also limited by a variety of factors, including the topography, land ownership, and the critical viewshed protection-policies in some circumstances. Recreational issues often spill into the roadway, causing spin- off transportation issues. Support Facilities Support facilities and amenities are relatively uncommon features along the coast and can be viewed as “visual clutter” that degrade the preservation of the coastal A plaque on a residential gate environment. These facilities are often sheltered from view from Highway 1, so unknowing visitors may not be aware of their locations. Increasing awareness of visitor facilities through signage and wayfinding is a challenge because it can formalize the experience of Big Sur. With the lack of amenities such as restrooms and trash cans—or awareness of their locations—litter and human waste are an issue throughout the highway corridor. Stakeholders and residents can pinpoint locations with human waste issues and are often the ones who clean up the roadsides. Litter and human waste do not just contribute to a negative user experience, but they degrade the natural environment and can become a human health hazard if action is not taken. Most recently, due to health hazards created by visitation, both Yosemite National Park and Joshua Tree National Park were closed during the 2018-2019 partial shutdown of the federal government. Parking at recreation areas is an important support facility considering that driving Trail closures try to limit recreation in certain areas is the overarching attraction of Big Sur. Recreation areas often have inadequate “Preservation of place parking. For example, trailheads along the highway don’t necessarily have parking for the trail users. This leads people to park in relies in part on controlling precarious, and at times illegal, locations or stop their cars in the roadway to wait the intensity of use.” for a parking space. Since expansion – 2004 Big Sur Coast Highway of parking areas is unlikely, transit and Management Plan, page 64 parking management strategies have the opportunity to address this issue.
Chapter 4 | Issues and Challenges 37 TRANSPORTATION parking behavior issues that cause gridlock and The transportation infrastructure of stop traffic are: Highway 1 has remained relatively ▪ Stopping in the middle of the highway unchanged since the highway was opened travel lane to wait for available parking, or in 1937, while population throughout the to drop off people to see the view, state has increased sixfold. The narrow ▪ Opting to turn around in locations that and constrained nature of the roadway impede traffic, limits road width and shoulder widening ▪ Parking over the fog line in areas not wide enhancements. enough to fit a car, and Slow and Large Vehicle Travel ▪ Double parking and blocking in cars in Large and slow-moving vehicles create order to stop at scenic viewpoints. delay issues through the corridor. Sharp, In off-highway parking areas such as Point blind curves and double yellow road Lobos SNR, lines of cars from the entrance centerlines prohibit safe and legal passing. station often spill into the highway despite signs Given the few paved and signed slow showing that parking within the reserve is full. vehicle turnouts in the corridor, drivers Parking and congestion issues associated with of these vehicles are often unsure of known primary Big Sur destinations can result whether the road shoulders can safely and in significant delays for highway motorists. adequately accommodate their vehicle, causing delays for long lines of vehicles Bicycling Access driving behind them. Travel delay in a bus Highway 1 is the main thoroughfare of deters potential riders. the Pacific Coast Bike Route with narrow shoulders. Given this configuration, cyclists Parking Behavior often must share the travel lane with motorists. Congestion related to parking behavior is Cars parked along the roadside can create a major concern for residents in the area conflicts between bicyclists and motorists as and can discourage transit ridership. This the cyclists are forced further into the travel issue relates to increases in visitation as lane and often need to maneuver around a result of population increases, a robust pedestrians walking in the road. economy, and an increase in recreation travel at a state and national level. It also is Pedestrian Crossings associated with changes in user behavior. Pedestrians crossing the highway cause vehicle The parking demand along the roadway delays near some of the most popular locations often exceeds its capacity at highly visited in the corridor such as Point Lobos, Bixby destinations. These common occurrences Creek Bridge, McWay Falls, Pacific Valley, and become exacerbated on holidays and elsewhere. All these locations experience higher weekends, which by some accounts occur than average pedestrian crossing rates from year-round. Some of the issues relating to people parking along the roadside and walking to the point of interest on the other side of the road.
Roadside parking and visitor behavior at Bixby Creek Bridge cause congestion
38 Chapter 4 | Issues and Challenges Big Sur Highway 1 Sustainable TDM Plan Pedestrians often walk in, or adjacent to, the travel lane because there is not a dedicated pedestrian path and there are not any other locations to walk. Unaware pedestrians also dart across the roadway in front of cars traveling at high speeds. These issues create a high potential for conflicts. Addressing the pedestrian-vehicle conflicts in these target areas is a focus of this Plan. Transit Utilization Transit service through the corridor is underutilized. Both the MST and SLORTA lines that provide transit through the corridor have low ridership and infrequent runs. There are multiple reasons for the low ridership along these runs. Both lines run infrequently—operating between zero and five times a day depending on the season and day of the week—so using transit requires advance planning and a schedule that aligns with the set bus schedule. The bus schedules are generally inconvenient for commuters and for recreational visitors who wish to visit multiple recreation areas for short periods throughout the course of the day. Bicycle touring along Highway 1 There are challenges to improving public transit infrastructure such as the area’s physical constraints. Transit providers also face internal challenges, such as the lack of funding and available bus fleets. Road widths further limit transit through the area as it impacts bus stop and turnaround locations. According to MST and SLORTA stakeholders, existing bus turnaround locations are sub-optimal and provide concern for the bus drivers. Agencies also cannot use full length buses due to roadway constraints which reduces potential ridership. Transit shuttles, such as the 2018 pilot Big Survice shuttle to Pfeiffer Beach, experience issues with locating appropriate intercept parking lot locations. In 2018, the Big Survice shuttle used the parking area at Big Sur Station. This location worked due to the closure of the Pine Ridge Trail, which uses the same parking area. Once the Pine Ridge Trail reopens, a long-term suitable area will need to be identified. Pedestrians walking along the highway from McWay Falls
Chapter 4 | Issues and Challenges 39 ELECTRIC VEHICLE TECHNOLOGY INFRASTRUCTURE INFRASTRUCTURE Technology infrastructure is tied to many There are multiple issues associated with of the potential TDM solutions. Improved electric vehicle (EV) charging, both in its technology infrastructure can allow modern, current state and for future expansion: relevant, and widespread TDM solutions and ensure positive rider experiences. Technology ▪ Almost all existing charging facilities infrastructure enhancements require a high are currently not located in publicly level of engineering that may not be possible accessible locations. in Big Sur due to its remote location, lack of ▪ Unless significant technology service connections, and steep terrain. Despite infrastructure enhancements are made, these challenges, this plan recognizes the a roughly 60-mile stretch of roadway is unserviceable for EV charging. importance of technology. The opportunity for enhancements is discussed on page 69. ▪ Charger locations are limited to lodgings, but not recreational day use Lack of cell phone reception and radio areas. connections also affect emergency response. Fewer people may opt to drive electric In the event of an accident, people are often vehicles through Big Sur given the lack of unable to reach emergency response services in infrastructure, creating carbon emissions a timely manner, and, once notified, congestion and noise through the corridor. may delay emergency responders. While there are call boxes located along the roadway, they are less effective than having complete cell coverage. Additionally travelers are often disoriented and do not know where they are along the coast highway.
Existing EV charging stations are concentrated in the southern portion of the corridor.
40 Chapter 4 | Issues and Challenges Big Sur Highway 1 Sustainable TDM Plan ENVIRONMENT Environmental issues associated with climate and drainage in Big Sur have led to increasingly severe wildfires and landslides. These natural disasters have led to prolonged closures of the roadway and recreation areas. Closures limit which recreation sites people can visit, increasing visitation to locations that are open and perpetuating congestion and over-tourism concerns. Environmental challenges do not directly influence TDM opportunities, but they are relevant none-the-less given the impacts they have on the livelihood of Big Sur. The CHMP references methods for managing storm damage response and other environmental issues that impact the highway.
Landslides can create Highway 1 closures
The Mud Creek Slide in 2017 (Image courtesy of Caltrans)
Chapter 4 | Issues and Challenges 41 PROJECT TITLE | Project City, State
Big Sur Highway 1 Sustainable TDM Plan Chapter 5 Corridor TDM Opportunities
Chapter 5 | Corridor TDM Opportunities 43 Transportation Demand Management Overview Transportation Demand Management (TDM) encourages a shift from single-occupant vehicle trips to transit, biking, walking, or other forms of transportation; or shifts trips out of peak periods. TRANSPORTATION DEMAND TDM seeks to reduce auto trips–and vehicle miles MANAGEMENT TDM approaches can include traveled–by offering a variety of transportation promoting alternative modes of option tools and management strategies. transportation and shifting travel demand to non-peak periods.
TDM approaches include transit and shuttle services, infrastructure Traditional TDM strategies enhancements, information programs, and management strategies include transit, biking, and and policies designed to make it easier for people to reach their walking. Support strategies and destinations without using a vehicle. Benefits include congestion infrastructure enhancements management, improved air quality, reduced erosion and improved are often required as a means water quality, and reduced energy consumption. For recreation to modify visitor behaviors from areas like the Big Sur Coast, an improved corridor experience for use of personal vehicles to other residents and visitors is another key benefit. transportation options. TDM strategies are organized into six categories for the Big Sur In addition to the diverse Coast Highway. These approaches are listed below. Examples of recreation destinations and approaches within each category are more fully described in the places to explore along the TDM Toolkit in Chapter 7. Highway 1, driving the Big Sur Coast highway is a recreation ▪ Transit and Shuttle Services experience in itself. Therefore, ▪ Infrastructure Enhancements TDM strategies must be ▪ Traveler Information considered in the context of both ▪ Active Transportation desired user behavior and the ▪ Parking Management and Enforcement potential for influencing different ▪ Data Collection and Analysis transportation choices. Land National Parks have a number of precedent examples for the managers, transit operators, application of TDM strategies for recreation access in high demand and enforcement agencies will areas. The opportunities presented in this chapter are informed need to work together to achieve by those examples, while also being grounded in the reality that a corridor TDM goals. California coastal highway has constraints on some management and operation opportunities. For example, Zion National Park restricted the use of personal vehicles into the park as a method to shift visitors to use transit. This option does not exist for California state highways. However, a number of opportunities are available. Nevada recently addressed similar recreation access issues at Lake Tahoe through corridor planning for a rural two-lane highway along the lake’s east shore. Access to a popular state park and forest service beaches is being shifted to transit, walking, and biking. This chapter discusses how similar strategies provide opportunities to address the shared issues along the Big Sur coast and provide more ways for people to visit the area without using a personal vehicle.
44 Chapter 5 | Corridor TDM Opportunities Big Sur Highway 1 Sustainable TDM Plan CORE VALUES AND GUIDING PRINCIPLES The set of values and guiding principles for the Big Sur Coast Highway were informed by previous plans and developed through conversations with stakeholders. The values by which the corridor should be managed are as follows: Organized yet Independent Travel Experience Part of the magic of the Big Sur Coast Highway is the ability to explore and find new and interesting places and experiences. TDM strategies and corridor approaches should maintain and foster this sense of exploration and wonder while managing the corridor as a whole. Iconic Visual Access is of Primary Importance The aesthetic value of the ocean viewshed sets Highway 1 apart from many scenic drives. Rugged and rural views should be conserved and visual clutter, such as signage, minimized. Design elements should reflect the visual character of the corridor. Respect for Environment and Community The coastal landscape is rugged, diverse, and can be easily threatened by both natural and man-made events. Highway 1 is considered a “Main Street” for Big Sur communities and, as such, strategies for improving walking and biking opportunities are important. Decision-making must consider the needs of the environment and residents. Visitors should be encouraged to help be part of the legacy of a corridor which celebrates ecological health and community wellbeing. Responsive and Action-Oriented with Adaptive and Innovative Strategies Transportation planning and tools continually change. New technologies, partnering, and funding opportunities arise. The outcome of management strategies may be moderate to wildly successful, or they may create unintended consequences. As opportunities are refined and implemented, they must be monitored for effectiveness and adapted accordingly. New technologies should be utilized and small pilot projects explored in order to build momentum with small wins that can show the benefits of change. Balanced The needs and considerations of both visitors and residents must be addressed, with careful attention to both individual and public rights. The intrinsic qualities of the Big Sur coast are highly valued by local, regional, state, national and international communities who join in calls for the sustainability of those qualities. The tourism economy also relies on providing and managing visual and physical access over the long term so as to protect a variety of natural resources and experiences. Inclusive Inclusivity addresses both community engagement and recreation access for all. As management strategies are developed, equitable access informs the approaches to ensure coastal access is maintained. Julia Pfeiffer Burns State Park
Chapter 5 | Corridor TDM Opportunities 45 ADAPTIVE MANAGEMENT AND PERFORMANCE INDICATORS Recreation and transportation corridors As the TDM opportunities discussed require a framework of adaptive in this chapter are further evolved and management to address issues. There are strategies formalized and implemented, no silver bullets or single strategies that land managers and enforcement agencies can achieve the desired outcomes. Often must regularly evaluate their effectiveness many of the strategies are interconnected. to meet management objectives. Adjusting Implementing multiple approaches the approaches should occur on a regular increases the likelihood of success. basis as user behaviors shift and new opportunities are made available and other For example, transit ridership may be issues arise. higher for those programs that are designed as part of a recreation experience and have supporting marketing campaigns and other incentives to encourage use. Infrastructure enhancements make transit operations more functional, improving reliability and making transit a more attractive alternative for potential riders.
PLAN eter i e a a e e t o jecti e e i e ey e ire o tco e I e ti y er or a ce i icator EVALUATE e e o a a e e t & LEARN trate ie a actio E a ate a a e e t e ecti e e Re ort i i a reco e atio o e a atio Perio ica y re ie o era a a e e t ro ra
ADJUST j t a a e e t actio a arra e e t to e a ce e ecti e e
DO E ta i o itori ro ra or e ecte er or a ce i icator I e e t trate ie a actio to ac ie e o jecti e The cycle of adaptive management
46 Chapter 5 | Corridor TDM Opportunities Big Sur Highway 1 Sustainable TDM Plan OPPORTUNITIES TDM opportunities for the Big Sur Coast ▪ Restrooms Highway include transit and shuttle service ▪ Slow Vehicle Turnouts enhancements and other improvements ▪ Paved Viewpoints that make the experience more enjoyable ▪ Technology for residents and visitors. Although the ▪ Road Geometry some strategies may not be traditionally considered as part of a TDM toolkit, ▪ Electric Vehicle Charging Stations their implementation may increase ▪ Active Transportation people’s confidence that transit will ▪ Paved Shared Use Shoulders provide a desirable experience. Therefore, ▪ Shared Use Paths infrastructure enhancements include ▪ Coastal Trail opportunities such as paved turnouts and ▪ Pedestrian Facilities restrooms. ▪ Data Collection and Analysis The opportunities discussed in this chapter ▪ Permanent Traffic Counts include the following: ▪ Regular Data Collection ▪ Visitor Experience Surveys ▪ Transit and Shuttle Services ▪ Travel Mode Surveys ▪ In-Corridor Shuttles ▪ Parking Management and Enforcement ▪ Private Tours ▪ High Demand Visitor Locations ▪ Traveler Information ▪ Management Systems ▪ Multi-Agency Visitor Hubs ▪ Unified Signage and Wayfinding ▪ Reinforced Desired User Behavior Baseline data for performance indicators ▪ Marketing Campaigns should be collected prior to implementing ▪ Infrastructure Enhancement projects and strategies.
Desired Outcomes Performance Indicators Increased transit ridership and bicycle counts in proportion to overall corridor visitation Increased amount of visitors using transit or active transportation to reach destinations Increased ridership and operation of small shuttles Reduced vehicle miles traveled Managed congestion at high demand visitor locations Organized parking areas and experience Reduced impacts of peak visitor use Increased percentage of visitors reporting that they planned ahead Increased number of visitor facilities to manage use Increased availability and use of publicly accessible electric vehicle Increased use of electric vehicles to charging stations at public parking areas for commercial and explore the corridor lodging sites and all state and federal public parking areas Coordination/co-location of projects and Number of projects achieving goals of multiple agencies and leveraging of funding reduced instances of missed opportunities
Improved bicycle infrastructure and increased Enhanced shared use shoulders along feasible areas of the highway comfort of road cyclists Establishment of a Byway Organization Adaptive and responsive corridor management Data collection and evaluation of corridor health Table 4: Desired Outcomes and Performance Indicators
Chapter 5 | Corridor TDM Opportunities 47 Transit and Shuttle Services Opportunities As of 2019, public transit service is provided by two operators: Monterey-Salinas Transit (MST) and San Luis Obispo Regional Transit Authority (SLORTA). Ridership on both services is relatively low in comparison to personal vehicle access of the corridor. However, there is an opportunity for shuttle services to provide access to corridor destinations. IN-CORRIDOR SHUTTLE OPPORTUNITIES Many popular visitor activity centers benefit from the provision of a local shuttle service. Shuttle services can help address local traffic congestion, solve parking issues, coordinate restroom availability, and enhance visitor experience. To be successful, shuttle services SUPPORTING STRATEGIES need to be relatively simple and easily understandable, provide ▪ Multi-Agency Visitor Hubs consistent service, and have adequate frequency to provide for a ▪ Provide travel information, wide variety of trips. park-and-ride hubs, and restrooms Features of shuttle services with higher riderships typically include: ▪ Enforcement ▪ Frequent service with limited stops ▪ Relocating roadside parking, if needed, to off- ▪ Low cost or free highway locations ▪ Convenient and easy to access ▪ Enforcing no-parking ▪ Reliability of on-time arrival zones, if needed ▪ Comparable or lower travel time to reach destinations (as ▪ Increasing illegal parking compared to personal vehicle) fine, if needed ▪ Shuttles accommodate recreation gear ▪ Infrastructure Enhancements ▪ Shuttles are developed in tandem with parking management ▪ Enhanced shuttle stops efforts and increased enforcement ▪ Road and intersection Three in-corridor shuttle service opportunities are identified for the geometric enhancements Big Sur Coast Highway. These routes are designed to operate on a for bus turning seasonal basis to fill the gap in public transit routes. The systems ▪ Visitor Information are designed to have relatively compact service areas so shuttles can ▪ Big Sur App operate with high frequency and increased reliability. Supporting ▪ Real Time Bus Tracking strategies described in the sidebar will also help improve success of ▪ Marketing plan and the systems. The three potential service areas include: materials ▪ Through Corridor Transit ▪ Enhanced shuttle stop ▪ Point Lobos Shuttle signage ▪ Big Sur Shuttle ▪ Pfeiffer Beach Shuttle The in-corridor shuttle services described in this section are designed to primarily serve visitors and reduce the number of vehicles on Highway 1. Residents and employees in the area are less likely to use the shuttles, depending on the schedule. However, vanpools, carpools, and ridesharing operations developed by business groups could be organized to serve employees. Partnerships between local employers, public agencies, and non- profit groups can further promote and facilitate these types of services.
48 Chapter 5 | Corridor TDM Opportunities Big Sur Highway 1 Sustainable TDM Plan MONTEREY
Point Lobos Shuttle (potential extension to Garrapata SP) CARMEL-BY-THE-SEA
POINT LOBOS
GARRAPATA STATE PARK
Existing MST Public Transit Big Sur Shuttle
ANDREW MOLERA STATE PARK Public Corridor Transit BIG SUR between Nepenthe PFEIFFER BEACH and San Simeon (by MST or SLORTA)
Pfeiffer Beach NEPENTHE Shuttle
Existing SLORTA Public Transit in SLO County
Figure 13: In-Corridor Shuttle Opportunities - Carmel to Nepenthe
Chapter 5 | Corridor TDM Opportunities 49 THROUGH CORRIDOR TRANSIT At present, public transit service along the (including a necessary mid-run bathroom Big Sur Coast is limited to the Monterey- break), adding four hours to a Route 22 Salinas Transit (MST) Route 22 and the round-trip. Through passengers would San Luis Obispo Regional Transit Authority then transfer to SLORTA Route 15 in San (SLORTA) Route 15 service. MST Route Simeon for travel onwards to Morro Bay 22 connects Monterey as far south as and San Luis Obispo. A full one-way trip Nepenthe three times per day, seven days between Monterey and Morro Bay would a week in summer and two times per day require approximately 5 hours of travel weekends only during the other seasons. time, depending on the time between buses SLORTARoute 15 runs north from Morro at the transfer location. To operate the Bay as far as San Simeon five times per day other existing runs, a second bus would on weekdays and Saturdays and three times need to be operated on MST Route 22. per day on Sundays. There is no public Alternatively, extending SLORTA Route transit service for the 63-mile-long stretch 15 northward to make a connection with between Nepenthe and San Simeon. MST Route 22 in Big Sur would add the same travel times and would also require Either of the existing public transit routes operation of a second bus. could be extended to fill this gap, although a majority of the unserved stretch lies In light of the travel times, without frequent within Monterey County and expanding trips, this service would not be useful transit would require additional revenue for persons making a round-trip within a sources to fund increased operations. day, or for through travelers (who would For example the MST Route 22 could find travel via existing services along the be extended south to San Simeon. The US 101 corridor to be more convenient). extension would require approximately The modest ridership on MST Route 22 2 hours to operate in one direction indicates a limited potential for resident- generated public transit trips along the corridor. This also potentially indicates that bus service does not align with frequencies and times sufficient for residential needs. However, this service could be useful for bicyclists who ride through the corridor one way and use transit for a return trip. It may also be popular among visitors interested in a scenic trip and recreationalists traveling to parks and trailheads along the corridor. As such, it is likely that a through route is a better opportunity for a private transportation firm to serve on schedules designed to maximize the tour qualities of the trip.
A bus stop in the corridor that has opportunities for enhancement
50 Chapter 5 | Corridor TDM Opportunities Big Sur Highway 1 Sustainable TDM Plan MONTEREY
CARMEL-BY-THE-SEA
MST Line 22
BIG SUR NEPENTHE
Potential Through Public Transit
Legend Monterey County Conservation San Luis Obispo County State Park Unit Easement National Forest Restricted Access Lands Other Federal Land Wilderness Area Regional Park Waterbody County Park Roadway SLORTA City Park or Open County Boundary Line 15 Space SAN SIMEON Preserved Land
CAMBRIA 0 2 4 8 miles 46
Figure 14: Through Public Transit Opportunity
Chapter 5 | Corridor TDM Opportunities 51 POINT LOBOS SHUTTLE The Point Lobos Shuttle represents 4. Improve traffic and pedestrian safety, a community-based initiative called especially into and out of parking areas, Park It!. The approach was developed parklands and other popular sites. in coordination with California State Opportunities for a shuttle service or Parks, Monterey County, Caltrans, and enhanced walk-in/bike-in access for Point other agencies to manage congestion and Lobos SNR is described in the Traffic and improve sustainable access to parklands Parking Study for the Carmel Area State in the Monterey Peninsula and Big Sur. Parks General Management Plan. The Within this region, some parklands are not shuttle service would function similar to accessible to the public because of traffic- the systems developed for Muir Woods related issues. Point Lobos Ranch, San Jose National Monument or for the East Shore Creek, and Palo Corona Regional Park are of Lake Tahoe in Nevada. Both examples three examples. include a remote lot that is easy to access and located less than a few miles from the The Park It! initiative proposes the recreation destination. For both examples, following primary strategies: roadside parking was restricted and ▪ Provide alternative off-highway parking enforcement increased to shift people to locations, including locations on State the shuttle services. Muir Woods also uses a Parks, Regional Parks, and other lands. reservation system. ▪ Develop alternative modes of For Point Lobos, two potential intercept transportation and mobility between these parking locations and key lots have been discussed in the Carmel destinations – shuttles, and paths for Area State Parks General Plan: Marathon cyclists and pedestrians. Flat or Odello Farm. The Marathon Flat ▪ Design and implement safe and location has an added benefit of developing effective pedestrian passages and traffic a shared parking agreement with the flow patterns along Highway 1. existing commercial center. The Odello ▪ Relocate parking along Highway 1, Farm site is centrally located, but it is especially at very popular locations, acknowledged that the area would likely to off-highway locations once access have significant environmental constraints alternatives are available and restrict that would need to be overcome. The roadside parking in designated areas shuttle would only provide access to the (requires County ordinance to enforce). recreation destinations and not to other The focus of the approach includes four commercial or retail areas. This shorter goals: route allows for more frequent and reliable service. Commercial areas would be served 1. Develop distributed parking in the area, by other transit routes. Real-time bus focusing initially on Marathon Flats and tracking and marketing can help increase Point Lobos Ranch as options, with potential ridership. Future expansion of the plans for additional parking locations. shuttle service could extend to Garrapata 2. Develop convenient, affordable and State Park. environmentally friendly transportation options between the parking sites, An alternative to the intercept lots is parklands and other key locations. the opportunity to develop off-highway Electric vehicle shuttles, paths for parking in coordination with a visitor electric and manual bikes, and hub near the Point Lobos SNR entry. In pedestrians are options. this scenario, pedestrian access would be 3. Minimize car parking along Highway improved and the multi-agency visitor hub 1 except in officially designated would serve a dual function as a gateway to parking areas, once alternative parking and transportation options become the Big Sur Coast highway. It could provide available. restrooms and visitor information.
52 Chapter 5 | Corridor TDM Opportunities Big Sur Highway 1 Sustainable TDM Plan Legend Carmel-by-the-Sea State Park Unit National Forest Other Federal Land Regional Park County Park City Park or Open Marathon Flats Space intercept lot Preserved Land option 1 Restricted Access Odello Farm Lands intercept lot Wilderness Area option 2 Waterbody Roadway Carmel River SB
Roadside parking relocated, formalized, and/or restricted
Point Lobos Shuttle
Point Lobos Point Lobos Ranch parking opportunity for walk-in entry to Pt. Point Lobos Lobos and multi-agency SNR visitor hub
Potential turnaround & pedestrian Point underpass Lobos Ranch
Potential future shuttle extension to Garrapata
Figure 15: Point Lobos Shuttle Conceptual Routes
Chapter 5 | Corridor TDM Opportunities 53 BIG SUR SHUTTLE The area around the Big Sur community ▪ The vehicle would be wheelchair provides a concentration of visitor activity accessible and optimally would have a and lodging/campgrounds that could luggage area near the front door benefit from a shuttle service. An example of a similar transit service is the shuttle service provided in Glacier The potential Big Sur Shuttle route extends National Park on the Going-To-The- 8.2 miles from Nepenthe on the south to Sun Road. It uses Sprinter Vans (16-seat Andrew Molera State Park on the north. capacity) on a roadway with limited While it would be desirable to extend shoulders and clearances similar to further south to the Henry Miller Library Highway 1. and possibly the Big Sur Inn, there is no feasible opportunity to turn a bus around. While some visitors will not make trips This route would serve a total of 11 stops outside their resort or state park over the in each direction. Seven of the stops are course of a day, others will make more existing MST bus stops, and four new stops than one trip to visit other destinations would be developed. The 11 stops include: for shopping or dining. Based on trip generation rates for lodging and ▪ Andrew Molera State Park (new stop) campgrounds, and excluding trips made ▪ Big Sur River Inn (existing MST stop) outside the service area, the total one-way ▪ Big Sur Campground (new stop) person-trips made by visitors within the ▪ Ripplewood Resort (existing MST stop) service area on a peak day is an estimated ▪ Fernwood Resort (existing MST stop) 4,510. ▪ Pfeiffer Big Sur State Park (new stop) The proportion of these trips that would be ▪ Big Sur Station (new stop) made on the shuttle service will depend on ▪ Sycamore Canyon Road (existing MST many factors, such as fare level, frequency, stop) hours of service, etc. Considering the ▪ Post Office (existing MST stop) popularity of visitor-oriented shuttle ▪ Ventana Inn (existing MST stop) services in similar recreational areas, a ▪ Nepenthe (existing MST stop) conservatively low estimate is that five The intent of the shuttle is to primarily percent of all trips would shift to the Big serve people staying overnight in this Sur Shuttle. The daily ridership (passenger section of the corridor and providing them boardings) on a peak busy day is estimated a way to explore without using their vehicle. to be 226. Therefore, intercept lots are not required. Visitor activity levels vary over the course However, if the shuttle is popular, potential of the operating season, indicating that intercept lots could be considered. Capacity the average daily ridership would be on of the lots would need to consider other the order of 75 percent of the peak daily uses (such as the maintenance and staging ridership. needs at Big Sur Station). Key elements of the Big Sur Shuttle are described below. ▪ The bus would serve stops from Andrew Molera State Park to Nepenthe ▪ Two buses could provide a shuttle service with 30 minute frequencies ▪ Due to the constrained roadway and parking areas, a small van is recommended
54 Chapter 5 | Corridor TDM Opportunities Big Sur Highway 1 Sustainable TDM Plan This transit service could help address existing MST service). At present, a traveler parking constraints at popular locations considering coming to Big Sur without a within the service area, and could also car can instead decide to drive, concerned encourage more “exploration” and longer that their enjoyment of their trip will be stays in the area (with parallel economic compromised because they feel “stuck” at and safety benefits). their specific destination. Shuttle service running throughout the day enhances the In addition to serving local short trips, attractiveness of transit from nearby urban the availability of a shuttle service would centers to Big Sur. also encourage travel into and out of the Big Sur area by transit (such as on the
ANDREW MOLERA SP
BIG SUR AREA SHUTTLE
Andrew Molera BIG SUR RIVER INN SP BIG SUR CAMPGROUND
RIPPLEWOOD RESORT
FERNWOOD RESORT
Pfeiffer Big Sur SP PFEIFFER BIG SUR SP
Legend BIG SUR STATION State Park Unit National Forest SYCAMORE CANYON RD Other Federal Land POST OFFICE Regional Park County Park City Park or Open Space Preserved Land VENTANA INN Waterbody Roadway NEPENTHE 0 0.75 1.5 3 miles
Figure 16: Big Sur Area Shuttle Opportunity
Chapter 5 | Corridor TDM Opportunities 55 PFEIFFER BEACH SHUTTLE Pfeiffer Beach Day Use Area at the end ▪ Consideration would need to be given of Sycamore Canyon Road is a popular regarding the impact on the total destination. The amount of people persons using the Pfeiffer Beach at who desire to access the beach typically any one time. Except for vehicles with outnumbers the limited parking capacity. disabled placards, it may be desirable to This results in traffic congestion along the manage auto access during peak periods (such as 9 AM through 3 PM). This limited roadway as well as frustration on would manage beach access. the part of travelers and land managers. ▪ Additional parking would need to be A shuttle could be operated between constructed in the Big Sur area. While Pfeiffer Beach and an intercept parking there is currently available parking lot. A pilot project for a shuttle between at Big Sur Station, once the Ventana parking at Big Sur Station and Pfeiffer Wilderness trails are fully reopened this will no longer be available and a Beach was previously operated; the service long-term parking site would need to saw an average of 109 riders each day it be identified. The specific number of ran. Formalization of the operation could spaces to be constructed would depend be provided as described in the following on the results of a capacity analysis summary: for the beach area. Intercept parking should be close enough to Pfeiffer ▪ A single small (15-20 passenger) vehicle Beach to allow for efficient operations. could be operated over an 8-hour one- driver operating day (such as 9 AM to ▪ Intersection enhancements at Sycamore 5 PM). Canyon Road will help manage congestion caused by vehicles waiting ▪ Considering the potential for traffic to have clear access to turn from the delays, this service would not operate Highway to Sycamore Canyon Road. on a schedule, but rather would operate continually, approximately every half ▪ Ridership would depend on the level of hour. reduction in existing parking and the provision of new parking. Andrew Legend Molera SP State Park Unit National Forest
County Park City Park or Open Space
Waterbody Roadway
0 0.75 1.5 3 mi Potential intercept lot locations to be determined
Pfeiffer Big Sur SP
PFEIFFER BEACH SHUTTLE PFEIFFER BEACH
Figure 17: Pfeiffer Beach Shuttle Opportunity
56 Chapter 5 | Corridor TDM Opportunities Big Sur Highway 1 Sustainable TDM Plan PRIVATE SHUTTLE SERVICES & TOURS There are private and lodging shuttles that currently serve the Big Sur area. Examples include Big Sur Tours and Nepenthe’s shuttle program. As other corridor enhancements occur to enhance the travel experience, existing providers may be encouraged to increase services. Guidelines for operations could be included in future planning phases. Enhancing bus stops, viewpoints, turnouts, and other visitor facilities would allow for more reliable and improved private shuttle services. Because of the limited road widths, small van type shuttles are preferred. The benefit of private shuttle services is that they can be faster than public transit and stops can be customized to riders’ needs. Planning for private shuttles should be done in consideration to impacts to other services. Idling in bus stops is discouraged, but shared use of parking at bus yards and use of charging stations and battery swaps could benefit shuttle operators.
Small shuttles are appropriate for use along the Big Sur coast (Image courtesy of National Park Service)
Chapter 5 | Corridor TDM Opportunities 57 Traveler Information Opportunities Travel information is available in multiple platforms and at multiple stages of trip planning. Information can be printed or digital, web- based or app-based, and static or dynamic. Visitors access travel information according to their personal preferences. Visitors can do trip planning weeks or months in advance in anticipation of the activity. Others make plans the day of travel. Monterey County’s 2016 visitor profile showed that 29.5 percent of visitors used online travel agencies to plan their trip. This was followed by 19.5 percent gathering information on their mobile phone, 14 percent of people relying on the opinions of friends or relatives, and 13 percent using user-generated content or reviewing websites. Facebook content and YouTube or other online videos was used by 2.8 percent and 2.1 percent of visitors, respectively. Shifting user behaviors requires the use of multiple types of travel information to reach the largest number of visitors. This section discusses opportunities to broaden the messaging of available transit options and to use travel information and visitor information to improve the overall corridor experience. Opportunities include the following: ▪ Multi-Agency Visitor Hubs ▪ Unified Signage and Wayfinding ▪ Static and dynamic signs ▪ App-based and real-time information ▪ Reinforced Desired User Behavior ▪ Marketing Campaigns (including social media/online platforms)
Multi-agency or interagency visitor facilities help share resources and provide needed visitor facilities.
58 Chapter 5 | Corridor TDM Opportunities Big Sur Highway 1 Sustainable TDM Plan MULTI-AGENCY VISITOR HUBS Visitor hubs provide multiple opportunities. They gather and orient visitors; provide travel information; communicate desired behaviors and prohibited activities; NORTH ENTRY interpret the area’s cultural and built history, CARMEL-BY-THE-SEA & natural resources, and physical landscape; POINT LOBOS AREA offer visitor facilities, such as restrooms; and can be designed as intercept lots or mobility hubs to support transit. Multiple agencies and organizations operate in the Big Sur corridor. Developing BIG SUR AREA visitor hubs at the northern and southern entries and near Big Sur provides an opportunity to bring together agencies and organizations in a collaborative partnership to operate a multi-agency visitor hub. This model has been developed successfully along Highway 395 through the Eastern Sierras and elsewhere across the nation. The Eastern Sierra Interagency Visitor Center, Mammoth Lakes Welcome Center, and Moab Information Center all operate with interagency or multi-agency agreements. Monterey County The model for a visitor hub can be scaled San Luis Obispo County depending on resources, the site, and operational constraints. The hubs can be relatively unstaffed and have self-guided SOUTH ENTRY interpretation and travel information, or they can also include interpretive rangers SAN SIMEON & HEARST CASTLE AREA and concessions. At a minimum the hubs should include: ▪ Travel and transit/shuttle information ▪ Public restrooms ▪ Interpretive information ▪ Visitor information regarding desired behavior (e.g. Big Sur Pledge) ▪ Opportunity for park-and-ride, intercept, or transit stop facilities
LAND TRUSTS, CALIFORNIA U.S. FOREST CALTRANS REGIONAL PARKS, STATE PARKS SERVICE & NON-PROFITS
Figure 18: Multi-Agency Visitor Hub Cooperation
Chapter 5 | Corridor TDM Opportunities 59 VEHICULAR SIGNS
The purpose of this sign is to notify roadway users of arrival to an East Lake Tahoe destination. Its intended use is for vehicles type c: VehiculAr monumentAl destinAtion traveling between 20 and 50 MPH.
• Sign stands at 8.5 feet tall and 10.5 feet wide. Dimensions are recommended maximums but may be adjusted to suit each 12 Optional 12” wide printed aluminum specific location as necessary. emblem for front and back of sign • May include up to two destination names. • May UNIFIEDinclude up to 7 icons in oneSIGNAGE line AND WAYFINDING • Can be one or two sided Signage within the corridor is limited by regulation. The CHMP 10’ 1. Header Bar 11 • Material: 8” x 3” wood (Douglas Fir or Western Red Cedar), front and back of sign. 9’ • Mounting:discusses Mount to vertical support the beams need with standard to round minimize 2” thru bolts. visual clutter and the Big Sur Coast 1 Maintain 5” distance from top of header bar to top of aluminum cap. 8’ • Shape: Taper ends to an angle of 10 degrees 2 Land Use Plan states that highway signs should be of a design EAST LAKE TAHOE 7’ 2. Sign Panel - 1/4” powder-coated aluminum sign panel with 1” radius corners. 3 • Color: Match to PMS 279c. 4 6’ • Finish:complementary Clear anti-graffiti coating 1800 Series by to Ecological the Coatings rural LLC or similar. setting and character of Big Sur, with • Mounting: Mounts to backer panel with construction adhesive. Recreation 5 5’ 3. Lettersa and preference Arrows for natural materials. Unnecessary signs should be • Material/Color: White reflective vinyl (or white retro reflective sheeting) copy and directional arrows. 6 Destination 4’ • Typeface:removed Clearview Hwy 5W. and light sources must not be visible from the highway. 7 3’ 4. Vertical Support Beam - Material: 8” sq. wood beam (Douglas Fir or Western Red Cedar). 8 2’ 5. Support Straps 9 VEHICULAR SIGNS • Material: Powder-coated aluminum support straps. The signs shown in this plan are only meant as examples of 1’ • Color: Color to match PMS 498c 10 type A: VehiculAr pole-mounted directionAl • Mounting: Mount to vertical support beams and aluminum panel with 1” thru bolts.The purpose of this sign is to notify roadway users of upcoming destinations, activities, facilities, and directions. Its intended use messaging used to inform visitorsis for vehicles travelingabout between 20the and 50 MPH. location of facilities, 0 6. Round Bolts Front Side Left Side • Material: 1” Powder-coated aluminum round thru bolts • Sign stands 13.5 feet tall and is 12 feet wide. Dimensions are recommended maximums but may be adjusted to suit each 14’ 1 • Color:how Match to PMSto 4625c appropriately recreate, andspecific location how as necessary. to access transit to reduce 13’ • There are a maximum of 5 lines per sign and a recommended minimum of 3 lines per sign. 2 7. Sign Panel - 1/4” powder-coated aluminum sign panel with 1” radius corners. • Optional State Park destinations may be placed with standard highway coloring and icons. 3 12’ • Maximum of 3 icons per line. If more than 3 icons are required, an extra line for that destination may be added. JCT US-50 10 • Color:the Match tonumber PMS 4625c. of vehicles along the road. It is recognized that all 4 11’ 5 • Finish: Clear anti-graffiti coating 1800 Series by Ecological Coatings LLC or similar.1. Caps CARSON CITY 22 • Mounting: Mounts to backer panel with construction adhesive. • Material: Powder-coated aluminum. 10’ signage would require review and• Color: To match approval PMS 469c. per land use regulations S. LAKE TAHOE 23 9’ 8. Icons 2. Header Bar 6 SAND HARBOR 3 • Material: 8” x 3” wood (Douglas Fir or Western Red Cedar), front and back of sign. 8’ • Material: 10” vinyl recreational symbol with 1” radius corners. LAKE TAHOE EAST • Mounting: Mount to vertical support beams with standard round 2” thru bolts. 7 10’ • Color:and Icon background the to examples match PMS 469c, icon white.shown may not reflect policies. They are provided ALTERNATIVESPOONER LAKE & FUTURE9 SIGNS Maintain 5” distance from top of header bar to top of aluminum cap. 11 7’ • Shape: Taper ends to an angle of 10 degrees 9’ 9. Concrete Top 8 6’ as examples to show how other3. Sign Panel(s),areas Highway Wayfindinghave used signage to address • Material: Cured-in-place (CIP) concrete top • Material: 1/4” powder-coated aluminum sign panel(s) with 1“ radius corners, 12” height. 8’ • Color: Match to medium gray. ALTERNATIVE •SIGN Color: Match toTYPES PMS 342c. FUTURE SIGN TYPES 5’ • Finish: Clear anti-graffiti coating 1800 Series by Ecological Coatings LLC or similar. tourism issues. • Alternative signage should• Spacing: be Panels reviewed spaced 1/2”by theapart. appropriate agencies, and utilize materials and design • Future signage proposed shouldEAST be LAKE reviewed TAHOE by the appropriate agencies, 4’ 7’ 10. Support Base criteria identified in this• Mounting: document. Mounts to backer panel with construction adhesive. and meet the design standards identified in this document. 3’ • Material: Cured-in-place (CIP) concrete with fractured granite,• toInformational match granite signage, found4. Sign around such Panel as - 1/4”East the powder-coated TahoeLake Tahoe Take aluminum Care Campaignsign panel with signs,1” radius should corners. be utilized in appropriate • Electronic signage and messaging boards should be reviewed by the 9 6’ places such as trash• cans Color: andMatch dog to PMS waste 279c. stations and should not create sign clutter. appropriate agencies and designed to include material types consistent with 2’ 11. Round Bolts • Finish: Clear anti-graffiti coating 1800 Series by Ecological Coatings LLC or similar. 10 • Mounting: Mounts to backer panel with construction adhesive. the design standards of thisRecreation document. • Material:Developing Powder coated round 2” thru a bolts system of unified signage that has a scale and 1’ 5. Letters and Arrows 5’ • Color: Match to PMS 4625c 0 • Material/Color: White reflective vinyl (or white retro reflective sheeting) copy and directional arrows. Front Side Left Side • Typeface: Clearview Hwy 5W. Destination 4’ 12. Optionalvisual Printed Aluminum quality Emblem which reflects Big Sur can provide valuable travel 14’ 6. Icons • Material: 10” vinyl recreational symbol with 1” radius corners. 13’ 3’ • Color: Icon background to match PMS 469c, icon white. 1012 information while respecting the scenic resource. Every sign should 12’ 7. Sign Panel(s), State Park Destinations (Where Applicable) 11 2’ • Material: 1/4” powder-coated aluminum sign panel(s) with 1“ radius corners. 11’ • Color: Match to PMS 1615c be thoughtfully considered as to• Finish: Clearits anti-graffiti need coating 1800 Seriesand by Ecological placement. Coatings LLC or similar. Providing 1’ • Spacing: Panels spaced 1/2” apart. 10’ • Mounting: Mounts to backer panel with construction adhesive. 1 9’ 8. Vertical Support Beam - Material: 8” sq. wood beam (Douglas Fir or Western Red Cedar). 0 a minimum level of information can improve the corridor Optional Rear Side Right Side 8’ 9. Support Brackets • Material: Powder-coated metal; custom designed brackets shown; standard brackets may be specified by engineer. 7’ experience for residents and visitors.• Color: Match to PMS 469c. • Mounting: Mount to vertical support beams with standard round thru bolts. 6’ WOOD RODGERS Lake Tahoe East Shore Signage Plan 15 10. Bolts - Material: Powder coated round thru bolts attach support bracket to posts. 5’ Example of a “Postcard”11. Sign Backer photo Panel opportunity point Example of an embedded mile marker with • Material: 1/4” powder-coated aluminum backer panel with 1” radius corners. 4’ Color, symbology, and other naming• Color: Match to PMS 342c conventions canemergency also information be • Finish: Clear Anti-Graffiti Coating 1800 Series by Ecological Coatings LLC or similar. 3’ • Mounting: Mounts to vertical support beams with counter-sunk fasteners used to visually unify signage and orient visitors as to where they 2’ 1’
0 are along the highway. This can be helpful in both emergency Rear Side Right Side
response situations and in communicatingWOOD RODGERS other opportunities for Lake Tahoe East Shore Signage Plan 13 exploration and discovery in the corridor. A system of signage should have a unified look, appropriate to Big Sur, and incorporate dynamic
messaging (ImageExample use of by a standard Wood sign post withRodgers) future electronic sign Mobile technology should also be used in the corridor and could options, from basic flashers to advanced digital displays
reduce the need for fixed signs. The limitation in its use is the lack Any additional hardware or metal components, such as the 1 solar electronic power supply, should be powder coated of reliable cellular coverage. Visitors will need to download the app metal, color matched to PMS 469c prior to beginning their travels. Marketing campaigns and visitor Examples of a dog waste station and trash receptacle including artwork from the “Take Care Tahoe” hubs can help address this constraint.program. ( 2D Artwork provided by www.takecaretahoe.org )
WOOD RODGERS Lake Tahoe East Shore Signage Plan 28 Dynamic messaging can provide real-time, or relatively real-time, travel information to shift use behavior. Visitors may be directed to intercept lots before reaching their destination and learning that there is no available parking. Alternatively, drivers may realize they are driving much slower than the speed limit and should consider Signage can use color, symbols, letters, numbers, pulling over for passing vehicles; they may also notice that they are and naming conventions to orient visitors and driving too fast and should slow down. increase their ability to understand where they are in the Figurecorridor. 7. Vehicular (Image Directional by Sign, Hunt Reduced Design) Size Option
A coastal access app was developed in coordination with the California Coastal The use of recognized, international symbols Commission. It offers opportunities to engage with visitors and provide travel addresses theFigure need 8. Vehicular to be Information understood Sign (VD2) by information to promote transit and may have a significant positive impact. international visitors (Image from Town of (Images by YourCoast) Town of Springdale │ Wayfinding Wayfinding & Signage Master Plan & Signage Master Plan))30 May 2019 │ Technical Memorandum D 60 Chapter 5 | Corridor TDM Opportunities Big Sur Highway 1 Sustainable TDM Plan REINFORCED DESIRED USER BEHAVIOR Signage and messaging can be used to reinforce desired visitor behaviors. The Big Sur Coast Highway is a special place and befitting of respect and appreciation by all who travel it. Although signage should be limited in the viewshed, opportunities to communicate with visitors should remind them of how they can take part in a legacy of stewardship for the corridor. Simple and fun messaging has been used in other areas, such as the Take Care Tahoe campaign. A series of graphically engaging signs are consistently used throughout the region to prompt people to respect the ALTERNATIVE & FUTURE SIGNS landscape and be mindful of their impacts. Signage that cautions people about Big Sur Pledge logo represents the community-driven effort to promote sustainableALTERNATIVE use.(Artwork SIGN by Jerraldine TYPES Masten Hansen) FUTURE SIGN TYPES unnecessary risks can also help stress • Alternative signage should be reviewed by the appropriate agencies, and utilize materials and design • Future signage proposed should be reviewed by the appropriate agencies, the need for visitors to stay on trails and criteria identified in this document. and meet the design standards identified in this document. • Informational signage, such as the Tahoe Take Care Campaign signs, should be utilized in appropriate • Electronic signage and messaging boards should be reviewed by the designated user areas. The National Parks places such as trash cans and dog waste stations and should not create sign clutter. appropriate agencies and designed to include material types consistent with has developed signs emphasizing dangers the design standards of this document. of certain actions. These examples can be referenced and used where appropriate. The Big Sur Coast Land Use Plan states that warning signs are a necessary enhancement to ensure public safety.
Similar to other special tourism areas, 1 the Big Sur community has developed a campaign to promote stewardship. The Big Sur Pledge asks for visitors and residents to pledge to uphold eight actions. Broadening the distribution of the pledge through CautionaryExample signage of a “Postcard”should clearly photo opportunitycommunicate point Example of an embedded mile marker with tourism agencies, social media, and other potential dangers. (Image by Lee Abbamonte) emergency information venues can help build momentum of respect for the coast and its community. Big Sur Pledge Protect and nurture Big Sur. 1. Share our coastal roads in a safe manner. 2. Be mindful of the impact of my actions. 3. Protect and respect Big Sur’s natural resources, public and private property, Example use of a standard sign post with future electronic sign residents, employees, and visitors. options, from basic flashers to advanced digital displays 4. Leave no trace and not damage or take what is not mine. 1 Any additional hardware or metal components, such as the solar electronic power supply, should be powder coated 5. Camp only where allowed. metal, color matched to PMS 469c 6. Be vigilant and fire safe. 7. Be a steward of this precious resource for the enjoyment of all. CleverExamples messaging of a dog waste can stationbe used and to trash remind receptacle people including of their artwork responsibility from the “Take toCare Tahoe” 8. Honor the spirit of Big Sur as it honors be stewards. (Imageprogram. by Tahoe ( 2D Artwork Fund provided and Wood by www.takecaretahoe.org Rodgers) ) me. WOOD RODGERS Lake Tahoe East Shore Signage Plan 28 Chapter 5 | Corridor TDM Opportunities 61 MARKETING CAMPAIGNS Marketing campaigns and outreach can serve multiple functions to benefit the corridor. They can motivate visitors to embrace different forms of travel, attract funding that is necessary to implement enhancements and maintain and operate facilities, and they can attract partnerships to put the opportunities into action. Regional transit providers have successful examples of marketing campaigns that encourage the use of transit and active transportation. These efforts can be expanded and built upon to message the use of transit to reach recreation destinations and explore Big Sur. Statewide marketing campaigns should also shift Marketing campaigns should be fun and easy to focus to convey the fun and independent understand (Image by the Tahoe Transportation District) experiences that can be achieved through the use of transit and active transportation along the corridor. Messaging should be SPONSORS consistent throughout the multiple agencies and organizations to begin to shift visitor expectations. ALPS Plan your 2019 hiking adventure PROJECT with Trailhead Direct Private partnerships should also be PARTNERS Fares Fares shown are for each direction. Trailhead Direct is a pilot project co-led by King County Metro and King County Parks. Adults (19 and older) $2.75 City of Bellevue, City of Issaquah, explored. For example, King County in This project seeks to ease vehicle congestion, City of North Bend, City of Renton, ORCA LIFT Fare* $1.50 reduce safety hazards and expand access to hiking *income qualified City of Seattle, City of Tukwila, Eastside destinations along I-90. For the 2019 season, Fire and Rescue, ECOSS, Issaquah Alps Seattle partnered with REIYouth and (6-18 yrs) multiple$1.50 service to Mailbox Peak will start at Issaquah Trails Club, Mountains To Sound Greenway RRFP cardholders $1.00 Transit Center and the new Trailhead Direct Cougar Trust, Si View Metropolitan Park District, (registered seniors, Medicare, disabled) other agencies and organizations to develop Mountain service will serve residents and visitors The Mountaineers, The Wilderness Society, Children (thru age 5) in South King County. TOTAGO, U.S. Forest Service, Washington Four may ride free with person paying adult fare branding, marketing, and messaging for a And, as in 2018, the Seattle Department of State Department of Natural Resources, Transportation is providing half of the operating Washington Trails Association costs for the Issaquah Alps and Mount Si Trailhead seasonal service to multipleHow trailheads. to Pay The Direct service. Upon boarding, pay your fare with exact change, a convenient regional ORCA card or an activated Visit trailheaddirect.org partnership allows private dollarsTransit GO mobile ticket. to Get helpyour ORCA card online at www.orcacard.com, by phone at subsidize the transit system1-888-988-6722 and expand(ORCA) or Washington State Relay: 711 (1-888-889-6368); at ticket vending machines in Sounder and Link light rail stations, or at one Trip Planning the number of people reachedof the transit by agency the customer service offices. SHARE YOUR ISSAQUAH Use Metro’s online Puget Sound Trip Planner You can download the Transit GO app for Android, desktop, mobile or Android or iOS apps to plan MARGARET’S WAY iPhone and Windows mobile devices and buy marketing effort. Partnerships with the film trips on scheduled service in King, Pierce and CHIRICO TRAIL – tickets directly using your credit or debit card. You Experience Snohomish counties. It provides details about POO POO POINT can also buy tickets through Metro’s “Marketplace” transit stops, routes and schedules. Trip Planner HIGH SCHOOL TRAIL industry can also be exploredsite on your as PC orthey desktop and couldhave the tickets itineraries do not include unplanned service #TrailheadDirect appear in the app on your mobile device. EAST SUNSET WAY disruptions and reroutes caused by weather, @kingcountyparks be a potential source of revenue or visitor emergencies, traffic, events or construction. APRIL 20 – OCTOBER 27, 2019 @kcmetrobus messaging. Accessibility Visit www.kingcounty.gov/tripplanner While trail destinations may vary in accessibility, Metro information or assistance @seattledot Trailhead Direct vehicles are wheelchair accessible. Metro Customer Service 206-553-3000 M-F 6 a.m. to 8 p.m. Sharing information throughAll are welcome.lodging vendors can provide direct communication Marketing and travel information package developed with a public- to visitors before they travel through the private partnership (Image by the King County Trailhead Direct) corridor. Concierges, hotel staff, and other service industry employees can inform visitors about transit opportunities. Easy to understand collateral materials and staff training provide tools for people to recommend alternative travel modes, shifting travel times, and how to plan for their visit.
62 Chapter 5 | Corridor TDM Opportunities Big Sur Highway 1 Sustainable TDM Plan Infrastructure Enhancement Opportunities Infrastructure enhancements can support The opportunities discussed in this section transit or shuttle operations. Improving the help address traveler needs to shift use overall experience for residents and visitors from personal vehicles to more sustainable increases the confidence in being able to modes of travel. Following are the use transit. Travelers have expectations infrastructure opportunities and needs for for service levels which need to be met for the corridor: them to consider using alternative modes of transportation to explore the highway ▪ Restrooms corridor. ▪ Paved and signed slow vehicle turnouts ▪ Paved viewpoints ▪ Technology infrastructure ▪ Road geometry enhancements ▪ Electric vehicle charging stations
Plug-in electric vehicle charging station
Chapter 5 | Corridor TDM Opportunities 63 RESTROOMS Addressing the limited number of public restrooms along the Big Sur Coast Highway will not only increase confidence of transit and shuttle users that their needs will be met, but it will also address a critical need for the corridor. Human waste can regularly be found at viewpoints, turnouts, and at locked restroom facilities. Addressing the issue requires a multi- agency partnership for land managers. New restrooms are planned for Garrapata State Park, but others are likely needed to help address needs. Several websites are dedicated to letting travelers know to plan ahead and where they can find public restrooms along Signage and visibility of public restrooms can encourage their use. the corridor. While land managers are responsible for meeting the needs of their own visitors, California State Parks does provide public access to restrooms without charging park entrance fees. Most businesses provide restrooms for guests and customers. Collaboration could provide an avenue for other fee sites to allow travelers to use facilities. It is often not clear that restrooms are available, especially at fee areas. In addition to identifying additional sites for restrooms, advanced signage and increased traveler information would improve the corridor experience for visitors and residents. Multi- agency visitor hubs at each corridor entry Restroom access in some fee areas is permitted, but it is not clearly signed point and near Big Sur could also provide or messaged along the corridor. facilities and inform travelers of where to locate facilities along the way. Advanced signage
Visitor information (pamphlets, phone app)
Regular intervals throughout the corridor
64 Chapter 5 | Corridor TDM Opportunities Big Sur Highway 1 Sustainable TDM Plan Monterey County Legend San Luis Obispo County Public restroom within !_ fee area Public restroom outside !_ fee area Sources: California State Parks, US Forest Service, Cambria Community Services District
Note: Map created September 2019 and subject to change
0 2 4 8 miles 46
Figure 19: Existing Public Restrooms
Chapter 5 | Corridor TDM Opportunities 65 SLOW VEHICLE TURNOUTS Highway 1 traffic consists of a wide mix of vehicles, driven by drivers with various driving behaviors and expectations. While truck volumes are modest, there is Paved a high proportion of recreational vehicles with slower surfacing performance. Though some drivers desire to travel at or near the speed limit, others are enjoying the view. Combined with the curvature and grades along the roadway, driver frustration can be high. At present, there are limited signed and paved turnout locations along the length of the corridor. Other turnouts may have had signs removed or Potential frequency are unmarked. Travelers may also use viewpoints, to plan for: approx. although they are not signed as turnouts. As previously every 5 miles discussed, there are many informal shoulder areas, the large majority of which are unpaved. Drivers desiring to pull over to allow vehicles to pass may be reluctant to do so, as they cannot be sure of the adequacy of an informal pullout with regards to width, slope, length, and the drop-off at the edge of pavement. The turnouts may also be used for parking during peak periods. In particular, RV drivers may choose to not use unpaved turnouts for the fear of being unable to pull back into traffic. Designating and signing turnouts provides assurance to motorists that the Figure 20: Potential Guidelines for Slow Vehicle turnout will prove adequate. Turnouts for Highway 1 The corridor was evaluated for potential turnout opportunities that would require little to no grading. EXISTING Forty potential turnout opportunities were found, SOUTHBOUND PAVED/ SIGNED TURNOUT along with the five existing turnouts. These potential locations are largely located on the southbound (ocean) side of the highway, and in the northern areas with flatter terrain. Many turnout opportunities are close to each other. While turnouts are typically sited to address specific grades or windy sections of roadway, given the mix of traffic along the Big Sur coast it may be appropriate to site turnouts at regular intervals, as feasible. For example, a desired criteria of providing EXISTING NORTHBOUND turnouts every five miles where possible could be PAVED/SIGNED established. Alternatively, the frequency could be TURNOUT higher or lower. Using every five miles as a goal, five additional turnouts would be provided in the northbound direction and eleven additional turnouts in the southbound direction. While specific locations would require detailed engineering and environmental assessment, the initial overview indicates potential to improve the driving and transit experience along the Big Sur coast. 0 2 4 8 miles
Figure 21: Existing Slow Vehicle Turnouts
66 Chapter 5 | Corridor TDM Opportunities Big Sur Highway 1 Sustainable TDM Plan Legend E Postmile Markers Southbound Opportunity Area ! for Paved/Signed Turnouts
Southbound Existing Paved/ Monterey County ! Signed Turnouts San Luis Obispo County Northbound Opportunity Area ! for Paved/Signed Turnouts
Northbound Existing Paved/ ! Signed Turnouts
Note: Identified locations represent informal, unpaved shoulder areas that meet Caltrans design standards for turnouts (200-500’ long and 12- 15’ wide) with tapered ends.
0 2 4 8 miles 46
Figure 22: Slow Vehicle Turnout Opportunities
Chapter 5 | Corridor TDM Opportunities 67 VIEWPOINTS WITH DELINEATED PARKING Similar to the need for paved turnouts to provide a level of comfort for motorists pulling off the highway, enhancements to appropriate viewpoints can better Viewpoint with organize vehicles and indicate desired delineated parking movement patterns. The CHMP describes a preference for unpaved viewpoints. Therefore, consideration must be given to which viewpoints are paved and which are unpaved. High use locations where organizing parking and delineating use areas can provide substantial benefit and those viewpoints that can also be used as slow-vehicle turnouts are candidates for enhancements. Paving areas highly used by motorists can also reduce erosion created by moving vehicles. In the southern portion of the corridor, several viewpoint locations have been improved to create a defined entry/exit and organize parking areas. Where possible, this is a desired solution. Defined entry/ exits can be strategically located to ensure Boulders, berms, and greater visibility of cyclists and motorists vegetation delineate on Highway 1. Currently, many of the lookout areas viewpoints throughout the corridor are informal, unpaved, and located in sites Figure 23: Guidelines for Delineated Parking Areas and Viewpoints where terrain limits opportunities. Viewpoints should be evaluated on a case- by-case basis to determine if enhancements are feasible. They should also be reviewed in regard to sight lines and turning distances. The lookout areas, or limit of user area, should be reinforced through the use of natural materials that meet the corridor’s visual goals. Boulder, berms, and vegetation are appropriate if consistent with design guidelines and standards. Symbolic fencing could also be considered along with interpretive signage that describes the importance of staying in designated areas and where appropriate areas to explore are located along the corridor. Secure bicycle parking should be added where appropriate to provide safe storage for people touring down the highway. The placement of bicycle parking should be prioritized in development areas.
Defining parking areas organizes the space and communicates when parking is full.
68 Chapter 5 | Corridor TDM Opportunities Big Sur Highway 1 Sustainable TDM Plan TECHNOLOGY INFRASTRUCTURE The use of mobile applications and ability to provide real-time updates for transit, shuttles, or parking availability is limited by the lack of cell phone coverage and technology infrastructure. As technology continues to advance, the need for technology infrastructure is more critical in making sound future investments in transit service and ensuring positive rider experience. Efforts to address the issue are underway. Microcell technologies and other alternatives are being studied. A new tower is also being planned in southern Big Sur Valley at Post Ranch. This document supports efforts such as these because of the value it will bring for corridor emergency response and to communicate Some parks without comprehensive cell coverage have opted travel information and help visitors shift to designate cellular sites. (Image by Williams and Hall) use behaviors.
Microcell technologies are being considered in areas where cell towers and other infrastructure enhancements are not feasible. (Image by Kriang Phrom / Shutterstock)
Chapter 5 | Corridor TDM Opportunities 69 ROAD GEOMETRY ENHANCEMENTS A limiting factor for transit and shuttle operations can sometimes be roadway infrastructure needs. Turning movements need to accommodate shuttles or buses and adequate space needs to be available for a bus stop to meet guidelines from the Americans Disability Act (ADA) and California Building Code accessibility requirements. As shuttle services are developed, roadway conditions should be assessed and enhancements made, where feasible, to support safe operations (for example, stops and turnarounds) of these services. An initial review of potential transit and shuttle opportunities revealed the following considerations for enhancements to road geometry or transit supporting Accommodating the turning movements of transit vehicles can improve infrastructure: their function and reliability, thus encouraging ridership. (Image courtesy of Caltrans) ▪ Point Lobos State Natural Reserve: consider ingress/egress enhancements at the entry for transit or shuttle vehicles ▪ Old Coast Highway at Bixby Creek Bridge: consider ingress/egress enhancements that define travel lanes and reduce conflicts at the intersection (cones are currently being used to address this need) ▪ Sycamore Canyon Road: consider ingress/egress enhancements to improve sight lines and enable motorists to enter Sycamore Canyon Road from Highway 1 when another vehicle is in the egress lane
Cones are, at times, used to help define turning movements.
70 Chapter 5 | Corridor TDM Opportunities Big Sur Highway 1 Sustainable TDM Plan ELECTRIC VEHICLE CHARGING STATIONS Governor Brown’s Executive Order B-30- Guides and readiness plans adopted by other 15 established a goal to reduce greenhouse jurisdictions should be reviewed, as they provide gas emissions 40 percent below 1990 levels a framework for evaluating where and how by 2030. In 2016, Senate Bill 32 put that many stations should be provided along the goal into law. Shifting vehicle use to electric corridor. San Luis Obispo County is continuing vehicles (EV) is a fundamental part of the to work with the SLO Air Pollution Control effort to reduce greenhouse gas emissions. District in order to complete the requirements under the California Energy Commission grant. Along Highway 1, providing plug-in electric The below considerations are the starting point vehicle (PEV) chargers can build driver for discussions. Overall, there should be an confidence to use EVs for their trip. Over a expectation that PEV infrastructure is located three year period, Nissan Leafs enrolled in where it will be used. a tracking program, which showed that as the distribution of EV chargers increased 1. Determine the purpose so did the range confidence of drivers. ▪ Safety and convenience ▪ Attract users to a destination (e.g. The Governor’s Office of Planning & lodging, commercial area) Research has developed resource guides to 2. Develop a high level assessment of how help jurisdictions develop readiness plans many EVs travel or may travel the corridor and adopt guidelines to identify where PEV to understand demand and potential demand chargers should be located. The majority of 3. Use surveys to determine locations where charging need will be met through home charging sites are most desired charging. Similarly, lodging sites would be 4. Develop ranking scores for sites based on the first tier of locations to be assessed for field assessments and criteria PEV infrastructure along Highway 1. ▪ Willing owner/operator In addition to lodging areas, providing ▪ Accessibility PEV charging stations at regular intervals ▪ Proximity to suitable power source will increase driver confidence by creating ▪ High visibility a network of charging stations that allows ▪ Suitable for a block of chargers EV drivers to make longer trips. The “West ▪ Public support Coast Electric Highway” is a network of PEV fast charging stations located every ▪ Well lit 25 to 50 miles along Interstate 5 and other ▪ Potential for long duration charge major roadways in the Pacific Northwest. A 5. Iterate the assessment similar goal could be applied for Highway 1, 6. Streamline permitting as required in while acknowledging slower travel times. California jurisdictions per AB 1236 (2015) Fast charging stations can significantly decrease the Regular intervals throughout the charge time. Depending corridor on the size of the vehicle’s battery pack and state of charge, fast chargers will charge the battery up to 80 percent Fast charging speed is desired in about 20 to 30 minutes. This helps alleviate driving range concerns, but installation is more Located at lodgings and costly than Level 2 or commercial or publicly Level 1 infrastructure. accessible areas with activities
Chapter 5 | Corridor TDM Opportunities 71 Active Transportation Opportunities Active transportation refers to “human- powered” travel modes used by people to reach destinations. Walking and biking are the most common forms. In recreation areas, active transportation is not only a way to get around, but it is also a recreation activity. Developing and improving walking and biking facilities will encourage some visitors to explore the corridor by bike. More importantly, it will improve cycling conditions, allow for reasonable bicycle access, and reduce conflicts with motorists. This section discusses four opportunities for improving active transportation facilities in the corridor: ▪ Developing paved, shared use shoulders ▪ Developing shared use paths ▪ Completing the California Coastal Trail ▪ Providing pedestrian facilities at select locations. The majority of recreational cyclists travel southbound to enjoy the coastal views.
Bicycle touring is a popular corridor activity, although much of the roadway does not provide space for bicycles outside of the travel lane.
72 Chapter 5 | Corridor TDM Opportunities Big Sur Highway 1 Sustainable TDM Plan PAVED SHARED USE SHOULDERS Highway 1 is part of the Pacific Coast Bike were discussed in the Coast Highway Route. The majority of bicyclists seen along Management Plan. Those ideas are the roadway are recreational users and not reinforced in this plan. commuters. Portions of the highway have a 4-foot wide paved shoulder, but paved The Department should work with partners shoulders are limited in many places. Cars to incorporate paved shoulders along and bikes are required to share the roadway the highway. Paving the shoulders could through most of the corridor. occur as part of other planned projects or as its own project. Improvements can Increasing the paved shoulder area can be coordinated with other viewpoint and give more separation between bicyclists turnout enhancements. Travel information and motorists. Achieving this goal may methods such as those mentioned in the requireadditional right-of-way in some Traveler Information Opportunities section locations. In other locations, steep (pages 60-62) should remind visitors to terrain may limit the ability to provide a share the roadway. paved shoulder. Strategies for improving the highway’s bicycle infrastructure
Increase paved shoulders for shared use
Figure 24: Paved Shoulders for Shared Use
Chapter 5 | Corridor TDM Opportunities 73 SHARED USE PATHS Class 1 shared use paths serve the widest range of potential bicyclists. Separated from the roadway, users that are not confident riding in the roadway are more likely to use the Class 1 facilities. In the northern portion of the corridor, the use of shared use paths as part of a network of active transportation facilities may serve some users and provide access to recreation destinations along the corridor. For example, shared use paths could be developed to connect California State Parks and other parklands in the Monterey and Carmel-by-the-Sea area. The Monterey County 2018 Active Transportation Plan identifies proposed shared use path routes along Highway 1 in Carmel-by-the-Sea. These routes could continue south to provide biking and walking access to the state parks. The paths could also connect to other trail systems, such as those planned for Palo Corona Regional Park.
The Monterey Bay Sanctuary Scenic Trail is a shared use path that provides access to recreation destinations and promotes walking and biking.
74 Chapter 5 | Corridor TDM Opportunities Big Sur Highway 1 Sustainable TDM Plan CALIFORNIA COASTAL TRAIL The California Coastal Trail will be a 1,200- mile network of paved and unpaved trails running the length of the California coast. Throughout California, over half of the trail is complete. Portions of the trail are in place along the Big Sur Coast. Developing feasible hiking and biking thoroughfares within the sight, sound, and smell of the Pacific Ocean has long been the vision for the California Coastal Trail. Planning for the trail system through the Big Sur Coast corridor is ongoing. Linking popular visitor destinations and connecting the trail to accommodation areas, intercept lot locations, and bus stops can provide viable transportation alternatives for people wanting to access the trail and explore the coast.
Boucher Trail is part of the California Coastal Trail and provides a way for people to enjoy the coast without the use of vehicle.
PEDESTRIAN FACILITIES Along the corridor, pedestrians are often considered a hazard. People walk along the shoulders to get from their car parked along the roadside to the perfect picture spot or to enter a recreation area. The lack of separated facilities causes concern for motorists and traffic slows to avoid collisions. It is not practical or desired to provide walkways along the entire highway. However, in high use areas, providing a designated, off-highway path can be beneficial, if feasible. The underpass from the off-highway parking area at Julia Pfeiffer Burns State Park is a good example of a pedestrian enhancement that can reduce conflicts with motorists and provide access to a desired viewing area. The potential to provide grade separated crossing could be explored in other areas of the corridor, such as near Point Lobos State Natural Reserve and Palo Corona Regional Park. The underpass at McWay Falls allows people to walk from off-highway parking to the vista point without crossing traffic. (Image by Modern Hiker)
Chapter 5 | Corridor TDM Opportunities 75 Data Collection Opportunities Adaptive management of the corridor requires gathering and assessing travel data on a regular basis. Data should clearly identify the state of the corridor. Used in tandem with a set of tools and corridor goals, data can inform which tool is best suited to realize the desired result. The opportunity cost for utilizing different tools can also be more critically evaluated. NORTH OF GARRAPATA STATE PARK The National Park Service is familiar with the need to continually evaluate and adjust their TDM approaches. As the transit systems for Yosemite and Zion have become increasingly popular, the National Park Service works regularly to modify and adapt the programs to address new issues and capitalize on new opportunities. As technology makes new tools available, land managers assess their viability and use. The collection of data can inform stakeholder conversations and guide decision-making. The result is a balance of resource protection, resident and visitor experience, and access needs. Data is also a valuable tool for grants and project funding and is critical for discussions with Monterey County COUNTY LINE legislators when issues need to be raised to San Luis Obispo County higher levels. ANNUAL DATA COLLECTION Caltrans’ Traffic Census Program publishes traffic counts in 13 locations along the NORTH OF corridor. Actual counts are typically CAMBRIA collected every three years and interpolated in other years. Because road closures and other factors can have significant impact on traffic Figure 25: Potential Locations volumes, there is a need to have annual for Permanent Traffic Counts traffic counts at key locations. This will allow land managers and stakeholders to have a more accurate picture of travel and visitation patterns and volumes. Data collection efforts should collect data on both motorists as well as cyclists. Three permanent count locations are recommended: ▪ North of Garrapata State Park ▪ At the county line ▪ North of Cambria
76 Chapter 5 | Corridor TDM Opportunities Big Sur Highway 1 Sustainable TDM Plan Final locations will be selected prior to implementation. Sites should provide baseline data for visitation in the corridor. In addition to traffic counts, park and recreation visitation numbers can also be a valuable data set. Recreation land managers should consider how to standardize data collection and use technology to provide more accurate information to guide transit operations and give a more in-depth picture of travel patterns and destinations. As a baseline, visitor information should at the least include the following: ▪ Park visitation by day and hour of arrival ▪ The time parking fills and when it reopens ▪ The number of people per vehicle ▪ Length of stay
VISITOR DATA In addition to standardizing the data to be gathered on an annual basis, the use of Annual traffic counts can more accurately capture the volume of surveys and other data collection efforts corridor use and show how levels of use are changing year to year. can be valuable resources. Surveys can (Image by MetroCount) be conducted every two or three years. Conditions that might affect the results, such as road closures, should be described in the reports. Collecting data presents an opportunity to fine tune strategies. The data can be coordinated by a lead agency such as a tourism agency or chamber. As a baseline, data collection should include the following: ▪ Visitor experience surveys ▪ Travel mode surveys ▪ Traveler destination and origin data within the corridor (e.g. coming from the north and returning to the north or traveling through) ▪ Roadside parking counts at high demand areas (e.g. Point Lobos State Natural Reserve, Garrapata State Park, Bixby Creek Bridge, McWay Falls) ▪ Turnover of roadside parking at Bixby Creek Bridge
Chapter 5 | Corridor TDM Opportunities 77 Parking Management and Enforcement Opportunities Rural highways that serve high demand recreation areas often are challenged by the need to provide access as well as accommodating through travelers. Visitors pulling to the roadside to park POINT LOBOS STATE or to take a quick photo can often make NATURAL RESERVE a roadway function more like a parking GARRAPATA SP AREA lot than a highway. Parking management and enforcement opportunities present approaches to address these issues. The BIXBY CREEK outcome should be designed to allow for BRIDGE equitable access while managing roadway congestion to improve transit reliability and enhance the overall corridor experience.
HIGH DEMAND VISITOR MCWAY FALLS LOCATIONS Although the entire Big Sur coast provides a variety of places to explore and recreate, visitation is highest near urban areas and destinations promoted on social media and other marketing sites. For example, the California State Parks near Carmel-by- SAND DOLLAR the-Sea are easily accessible and visitation BEACH levels reflect their proximity to lodging and residential areas. For some visitors, Bixby Creek Bridge is a “must-photograph” Monterey County destination even though roadside parking San Luis Obispo County is limited and congestion occurs with motorists waiting for someone else to leave. For these high demand areas, partnerships are needed to develop mutually beneficial Figure 26: High Demand strategies. The Park It! community-based Visitor Locations approach has started the conversation for Point Lobos SNR and other area parklands. IDENTIFY HIGH-DEMAND The opportunity to relocate roadside VISITOR AREAS parking to off-highway locations and provide improved recreation access should be considered for other areas along the CREATE BETTER EXPERIENCES AT corridor, as shown in Figure 27. ALTERNATE LOCATIONS The strategies to be considered for these locations should recognize the need for UTILIZE TOOLS TO SHIFT PARKING employing a variety of tools. Off-highway VISITOR BEHAVIOR AND ENFORCEMENT parking or viewpoint areas should be MANAGE PARKING CONGESTION PRICING RESERVATION developed in tandem with developing no- ZONES NO PARKING SYSTEMS parking zones and increasing enforcement
78 Chapter 5 | Corridor TDM Opportunities Big Sur Highway 1 Sustainable TDM Plan and fines for the no-parking zones during MANAGEMENT SYSTEMS peak periods. The intended result is to As off-highway parking areas and overlooks provide sustainable access that improves are developed or improved, consideration the corridor experience for visitors and should also be given to management of residents. the parking areas and enforcement of no-parking zones along the highway. The Bixby Creek Bridge Example intent is to better manage access. The popularity of taking a photograph at Bixby Creek Bridge has continually Tools that can be used to manage parking increased. California Highway Patrol has areas include reservation systems and directed traffic on peak days, but visitation congestion-based metered parking. volumes exceed the capacity of the roadside Reservation systems are regularly being parking. The opportunity for this area is instated across the country by state parks, to create an off-highway parking location national parks, and local and county with a view of the bridge and ocean vista. parks. Their use helps disperse visitation Sites should consider viewshed priorities throughout the day. and neighboring properties. The desired outcome could be similar to the off- highway overlooks developed to view the Golden Gate Bridge. Coordination with the U.S. Forest Service could provide opportunities to improve nearby facilities, such as Brazil Ranch. Alternative locations should be analyzed and reviewed as to how they would meet corridor goals. Upon development of an alternative location, parking at the bridge itself would be restricted. An example of the use of these interconnected approaches is being implemented along the East Shore of Lake Tahoe. Use patterns are shifting to Requiring reservations at certain locations gives land managers a tool transit and other off-highway parking areas. to communicate when parking is full and can shift user behavior. (Image by the National Park Service) McWay Falls Example Some off-highway parking exists near McWay Falls at Julia Pfeiffer Burns State Park. Popularity of the view overwhelms the parking area and travelers often use roadside parking for a quick picture. Messaging and marketing could help disperse use at this location. In addition, opportunities should be evaluated to expand the off-highway parking and formalize and organize roadside parking. Designated paths from formalized roadside parking areas can provide a separated route of travel for pedestrians so they do not walk in the highway.
Metered parking can be adjusted based on peak visitation to disperse visitation throughout the day, week, or month. (Image by Cale America)
Chapter 5 | Corridor TDM Opportunities 79 PROJECT TITLE | Project City, State
Big Sur Highway 1 Sustainable TDM Plan Chapter 6 A Path Forward
Chapter 6 | A Path Forward 81 PARTNERSHIPS The goal of the Management term agency collaboration is required to find efficiencies and opportunities Plan is to have agencies to leverage funding sources between organizations and gain efficiencies by and organizations establish sharing resources. a partnership that As the plan moves forward, partnerships collaboratively works toward may be formalized as part of a management structure. Discussion of operations and addressing shared issues. maintenance responsibilities should include identifying which agencies are best suited The Big Sur Coast highway crosses through for different roles and responsibilities and two counties, state and federal lands, and how cooperative agreements may work to has numerous agencies and organizations create mutual benefits. operating within the corridor. This makes management challenging. No single agency The objective of corridor partnerships is, can address the many issues that are a first, to confirm the need for collaborative by-product of visitation activities. Nor corridor management and recognize how can any one agency develop successful individual agency decisions can positively TDM strategies without the input and or negatively impact the overall corridor. coordination of other land managers. Second, projects and priorities should be confirmed. Third, the framework for roles Agencies recognize that it will take and responsibilities should be established a collaborative effort to accomplish and funding and operational agreements the corridor’s goals. It also requires developed. coordination and agreements to ensure infrastructure, maintenance, and operational costs can be covered. Long
Partnerships require all of the corridor agencies to collaboratively work together to leverage internal strengths and maximize funding opportunities.
82 Chapter 6 | A Path Forward Big Sur Highway 1 Sustainable TDM Plan BIG SUR BYWAY ORGANIZATION As part of ongoing corridor management It is not the intent to have this Byway and implementation strategies, the Big Sur Organization direct individual agency Coast Highway Management Plan discussed goals or their budgets. They will have a development of a successor organization or role in moving forward the strategies of committee to recommend priorities, clarify both the Coast Highway Management Plan issues, provide a forum for stakeholders and the Sustainable TDM Plan by guiding to be heard, and to interpret the plan a coordinated approach for corridor recommendations to the public. Because management. strategies and opportunities address shared issues and are not all the purview of one agency or organization, a Byway Organization as envisioned by the Coast Highway Management Plan, would serve a productive role to achieve change. The Byway Organization was not formalized after the completion of the Coast Highway Management Plan. However, renewed energy has spurred the organization’s development. It is anticipated that members of the Sustainable TDM Plan Steering Committee could be part of the organization.
The Big Sur Byway Organization will help recommend priorities and clarify issues.
Chapter 6 | A Path Forward 83 PROJECT TITLE | Project City, State
Big Sur Highway 1 Sustainable TDM Plan Chapter 7 TDM Toolkit
Chapter 7 | TDM Toolkit 85 Overview of TDM Toolkit The Transportation Demand Management (TDM) toolkit summarizes a series of tools and strategies TRANSIT & SHUTTLE that could be considered for use along similar rural, SERVICES two-lane highways with high recreation demands.
TDM encourages a shift from single-occupant vehicle trips to transit, biking, walking, or other forms of transportation; or to shift TRAVELER trips out of peak periods. Strategies seek to reduce auto trips–and INFORMATION vehicle miles traveled–by offering a variety of transportation option tools and management strategies. The TDM toolkit organizes potential strategies into six categories, as listed below. Core TDM strategies include those involving transit and shuttle services. Supporting strategies are also important parts INFRASTRUCTURE of successful TDM approaches. The remaining five categories ENHANCEMENTS cover the supporting TDM elements. For each strategy, an overall description is summarized and considerations and examples are provided. ▪ Transit and Shuttle Services (page 87) ▪ Traveler Information (page 90) ACTIVE ▪ Infrastructure Enhancements (page 96) TRANSPORTATION ▪ Active Transportation (page 103) ▪ Data Collection and Analysis (page 107) ▪ Parking Management and Enforcement (page 109)
DATA COLLECTION & ANALYSIS
PARKING MANAGEMENT & ENFORCEMENT
Figure 27: TDM Strateg y Categories
86 Chapter 7 | TDM Toolkit Big Sur Highway 1 Sustainable TDM Plan Transit & Shuttles Services
TRANSIT & SHUTTLE SERVICES
DESCRIPTION CORRIDOR OPPORTUNITIES The purpose of transit and shuttle ▪ Shuttles to popular destinations services are to provide visitors ▪ Local circulator shuttle with alternative ways to travel ▪ Existing transit expansion to destinations, without single CONSIDERATIONS occupant vehicles. Transit and ▪ Maneuverability of buses on Highway 1 is an issue. shuttles reduce the number of Infrastructure enhancements such as bus turnarounds may passenger vehicles on the highway be necessary to improve bus access through the area. and thereby reduce greenhouse gas ▪ Thru-shuttles can disrupt the economy of Big Sur if they do emissions and vehicle miles traveled. not stop at places that rely on business from visitors. There are several different types of ▪ Expanding service will require MST and SLORTA to routes, from local circulator buses, expand their vehicle fleet and funding sources. shuttles that transport visitors from ▪ Currently, there is no public transit through the entire intercept park-and-ride lots, hop on- corridor. A 61-mile stretch from Nepenthe to the Hearst hop off buses, and transit providing Castle Visitor Center is currently unserved. more regional connections. ▪ Transit and shuttles must offer advantages over personal If other TDM solutions are vehicles, including more direct access, cheaper costs, or employed, transit or shuttles can be employer transit subsidy programs. used to provide access to certain ▪ Increased frequency of buses is the best way to increase locations where individual users may ridership on existing bus lines. be unable to stop. ▪ Short service routes to high demand recreation areas, such as Point Lobos SNR and Pfeiffer Beach. On short routes, electric transit ▪ Areas with a density of lodging and recreation destinations can be used to further reduce can be served by short “explorer” shuttle routes. greenhouse gas emissions. ▪ Bicycle racks on buses should be robust and able to accommodate e-bikes. EXAMPLES ▪ Devils Postpile National Monument has a mandatory seasonal shuttle to access the valley. Visitors staying overnight in the valley are exempt from taking the shuttle. ▪ Visitors to Hearst Castle are required to ride a shuttle to the castle, which is used as an opportunity for visitor education. ▪ A shuttle in Bryce Canyon National Park operates for six months a year and offers free, frequent service between Bryce Canyon City and the first three miles of the park. ▪ At Muir Woods National Monument, two shuttle routes are Image by Gregg Tehennepe operated by the local transportation service, Marin Transit.
Chapter 7 | TDM Toolkit 87 Bus Tours
TRANSIT & SHUTTLE SERVICES
DESCRIPTION CORRIDOR OPPORTUNITIES Bus tours are a way to shift ▪ Stretches of the highway with a high concentration of visitors to a different mode of destinations and close enough to more urban areas transportation and reduce the ▪ Carmel-by-the-Sea to Big Sur number of vehicles on the roadway. ▪ Cambria to Hearst Castle They provide narrated visitor ▪ Popular destinations information about an area and ▪ Bixby Creek Bridge can be used to provide access to ▪ McWay Falls popular destinations. Conversely, tours can also provide service ▪ Through travel trips to less-popular destinations to CONSIDERATIONS disperse use away from congested ▪ Businesses throughout Big Sur are not designed to service areas. The information given on large influxes of visitors associated with tour buses. For tours can educate visitors on land business owners, independent overnight and destination stewardship as well as the history visitors are more desirable. and background of the area. ▪ Tours provide visitors with in-depth information about attractions. ▪ Tours can become very popular—especially if it is the only way visitors can access a place. But if they sell out it can lead to visitor frustration. ▪ Tours can be associated with an online reservation and prepayment system. ▪ Bus tours are popular with international visitors but are not currently a very popular way to travel through Big Sur for most people. ▪ Maintaining the solitude and contemplative nature of Big Sur is important. Bus tours should be designed with the desired experience in mind. EXAMPLES ▪ The Rainbow Point Tour is a twice-daily, 3.5-hour guided bus tour through Bryce Canyon National Park. Passengers can board at a variety of parking areas and overnight accommodations. Each bus seats up to 45 people. ▪ Acadia National Park promotes several tour bus options on its website.
Image by the National Park Service
88 Chapter 7 | TDM Toolkit Big Sur Highway 1 Sustainable TDM Plan Rideshares & Vanpools
TRANSIT & SHUTTLE SERVICES
DESCRIPTION CORRIDOR OPPORTUNITIES Rideshares and vanpools are ▪ Big Sur Chamber of Commerce businesses common tools for decreasing the ▪ County of Monterey Vanpool Commuter Program number of vehicles on the road by ▪ Expansion of existing rideshare programs: increasing the number of people ▪ TAMC’s Go831 program per vehicle. Ridesharing utilizes ▪ SLOCOG’s San Luis Obispo Regional Rideshare personal vehicles and can be program coordinated and subsidized through ▪ SLO County APCD’s Car Free San Luis Obispo a transportation agency or employer. program (also part of the California Green Business Vanpooling uses passenger vans Network) (generally 13-15 passengers but CONSIDERATIONS can be more or fewer). Vans ▪ Vanpools generally work best for groups of 6-15 people who are purchased, leased, or rented live near one another, work at the same location or in close depending on the format of vanpool proximity, and who travel over 15 miles to work. provided by the agency in charge. ▪ Vanpools and rideshares can be more convenient than Riders pay a fee to use the service, transit by providing transportation services around the users’ which can be bracketed based on specific work schedules. the length of the membership. ▪ Recruiting membership is reliant on media and marketing. In the study area, these programs ▪ Ridesharing and vanpooling do not have the flexibility that would most effectively target comes with personal vehicles. commuters who would otherwise ▪ Vanpools in Big Sur may not be very effective, since service be driving by themselves. The industry workers may not have similar schedules and services can provide door-to-door distances between businesses is large. service or have a common meeting ▪ Independent businesses along the corridor may not have a point such as a park-and-ride lot. large enough employee base to make a vanpool or rideshare Rideshares and vanpools can be program feasible. It may be best for a group of businesses to highly effective in rural, congested coordinate vanpools or rideshares. areas such as Big Sur. If coordinated EXAMPLES by local businesses, ridesharing and ▪ The San Fernando Valley in California implemented an vanpooling have the potential to be alternative fare reduction program by giving participants successful, since workers can have reduced pricing schedule for the first six months using the long commute times. program. ▪ It is noted that informal carpools are said to occur regularly in the corridor.
Image by Contra Costa Times & Bob Larson
Chapter 7 | TDM Toolkit 89 Marketing Campaigns
TRAVELER INFORMATION
DESCRIPTION CORRIDOR OPPORTUNITIES Marketing is a valuable way ▪ Destination marketing organizations, such as: to bring tourism into the Big ▪ See Monterey (MCCVB) Sur corridor. This is important ▪ Visit SLO CAL because tourism is the coast’s main ▪ Visit California industry. Elements of marketing ▪ Land managers websites and media, such as: campaigns include media, social ▪ California State Parks media, promotions, incentives, and concierge information/partnering ▪ U.S. Forest Service with local accommodations. Adding ▪ TDM and rideshare campaigns, such as: to existing marketing efforts is an ▪ Car Free San Luis Obispo program effective yet inexpensive means ▪ Go831 to inform visitors about TDM ▪ San Luis Obispo Regional Rideshare solutions. Marketing can also be CONSIDERATIONS effective in spreading the word ▪ Marketing campaigns should make efforts to not over- about promotions and incentives publicize one activity and thus overwhelm certain such as these to encourage people to destinations. travel during uncongested periods. ▪ Marketing campaigns can include information on Marketing is also important in sustainable recreation, transit, and visitation ethic. the effectiveness of other TDM ▪ Even if land managers and local marketing organizations strategies, such as a reservation change their marketing strategies, there is limited ability to system or managing road turnouts control how outside organizations market the corridor. during periods of peak visitation. EXAMPLES ▪ Muir Woods National Monument heavily marketed its required reservation system.
Image by the Visit Faroe Islands: Closed for Maintenance, Open for Voluntourism campaign
90 Chapter 7 | TDM Toolkit Big Sur Highway 1 Sustainable TDM Plan Dynamic/Variable Message Signage
TRAVELER INFORMATION
DESCRIPTION CORRIDOR OPPORTUNITIES Dynamic/variable message signs are ▪ Shuttle programs, parking areas, work zones, road closures, used to provide updates to visitors traffic conditions/driving time information while they are on the road. These ▪ Other critical traveler information signs are commonly used to alert CONSIDERATIONS travelers of traffic conditions, road ▪ Dynamic/variable message signs are subject to the signage work zones, speed limits, and other guidelines from the California Coastal Act and California alerts (such as AMBER Alerts). For Manual of Uniform Traffic Control Devices (MUTCD). TDM purposes, they are often used ▪ Portable dynamic/variable message signs or solar powered to notify visitors of full parking permanent signs may be the only option along much of the areas and to guide them to park- coast. and-ride locations. ▪ Signs can only display a limited amount of information. ▪ Signs must meet regulatory standards. The Big Sur Land Dynamic/variable message signs can Use Plan states that light sources must not be visible from be either static or live. Live message the highway. signs are remotely controlled and ▪ Signage must be complementary to the rural setting and updated automatically. Static signs character of Big Sur, with a preference for natural materials. must be updated in-person. EXAMPLES These signs can also be either ▪ Mesa Verde National Park installed a permanent dynamic/ permanent or portable. Permanent variable message sign at the park entrance to display driving signs are larger and are hardwired times to different areas within the park. to power, and therefore can only ▪ Muir Woods National Monument used dynamic/variable be placed in areas with an available message signs to promote park-and-ride lots prior to network connection or have solar adopting a reservation system. power. Portable signs are trailer- ▪ Yosemite National Park and Emerald Bay State Park, along mounted and smaller. They can with many other recreation areas, use dynamic/variable be displayed in multiple locations message signs to warn visitors that parking areas are full. and are generally solar-powered. ▪ Sand Harbor Nevada State Park uses a solar powered sign Portable signs are popularly used by that can be changed to flash when parking is full. Caltrans in construction zones and to warn travelers about incidents, especially in areas with limited power.
Image by the FHWA
Chapter 7 | TDM Toolkit 91 Signage & Wayfinding
TRAVELER INFORMATION
DESCRIPTION CORRIDOR OPPORTUNITIES Signage and wayfinding guides ▪ Recreation areas visitors to their destinations ▪ Slow vehicle turnouts and are a way to enhance user ▪ Transit stops and park-and-ride lots experience, especially for first-time ▪ Visitor information and facilities visitors. Signage and wayfinding ▪ No parking areas and associated fines strategies often use icons or images ▪ Public restrooms to convey information, which is especially useful to people who CONSIDERATIONS speak languages other than those ▪ Creating a comprehensive signage strategy requires displayed on the sign. The signage coordination between several stakeholder agencies, strategy can involve coordination including CSP, USFS, Caltrans, and the CCC among others. between multiple agencies to ▪ Creating a cohesive aesthetic can be challenging along a develop a cohesive aesthetic 100-mile corridor that has a variety of visual character. that references the place, rather ▪ Additional signage or replacement signage along the corridor than standard highway signage. would need to adhere to the guidelines and regulations set Furthermore, the signage and forth in the California Coastal Act, MUTCD, and CHMP. wayfinding could have “zones” to ▪ Avoid over-signing and maintain the “discovery” experience tie visitors to different places along associated with Big Sur. the coast. EXAMPLES ▪ The SR-28 Corridor Management Plan created a Different forms of signage can comprehensive signage strategy to thoroughly and also be specifically geared for aesthetically sign the many public lands along the highway. pedestrians, cyclists, or motorists ▪ Zion National Park color codes transit stops by each service and can show information that line to easily orient visitors. pertains to each user group. For example, signage for pedestrians and cyclists can include distances and elevation change to upcoming locations. Signage for motorists could include information on public restrooms, congestion levels and encourage people to use alternate transportation.
Image by Hunt Design
92 Chapter 7 | TDM Toolkit Big Sur Highway 1 Sustainable TDM Plan Mobile Apps
TRAVELER INFORMATION
DESCRIPTION CORRIDOR OPPORTUNITIES Mobile apps are a low-cost way to ▪ The California Coast app can be used to inform visitors make information available to many about public land units, destinations, and transit. people. They can allow people to get CONSIDERATIONS much more out of their experience, ▪ Apps must be reliable in order to be effective. Given the while empowering them to make widespread limitation of mobile services in many parts of better decisions. the corridor, mobile apps can have limited applications. ▪ Information provided in mobile apps should be coordinated Apps provide an accessible and easy between other media and marketing platforms and agencies platform to inform the public about to ensure a unified and consistent message. congestion- and transportation- ▪ Apps can be used for a group of recreation areas—such as related information. They can also a multi-agency app for all recreation areas within the Big be used to provide interpretive Sur coast—or single units—such as an app for Point Lobos information. Additionally, apps can State Natural Reserve. function as tour guides and can ▪ Mobile applications may not have current information or be advise the locations people visit, updated regularly. including persuading people to visit EXAMPLES less-congested destinations and to ▪ The YourCoast beach app by the CCC provides information use transit. about beaches along the California coast. Mobile apps are a way to provide ▪ The National Park Service provides mobile apps for their widespread information about the park units, including park maps, restrooms information, trailheads and trails, park calendar, tour information, and entire Big Sur corridor—from accessibility. The NPS prefaces that users must download information on individual park units and start apps before arriving to the park, so it can be used and destinations, to transportation without an internet connection. and emergency updates such as ▪ The free REI National Park Guide & Maps app provides parking capacities, travel times, and “insider tips” on camping, permits, and food service. The road closures. The information app also doesn’t require cell signal and all functions of the provided on mobile apps should app are available offline. be used in conjunction with other ▪ Blue Ridge Parkway has a web app that informs visitors types of media. about road closures and detours.
Image by Tyler Tjomsland & The Spokesman Review
Chapter 7 | TDM Toolkit 93 Visitor Centers
TRAVELER INFORMATION
DESCRIPTION CORRIDOR OPPORTUNITIES Visitor centers provide important ▪ Carmel-by-the Sea/Point Lobos area information about the area and ▪ Big Sur area are an opportunity for visitors to ▪ Hearst Castle/San Simeon area ask questions from knowledgeable CONSIDERATIONS staff personnel who can assist with ▪ The location of visitor centers is critical to their success. For trip planning. They are ideally the Big Sur coast highway, visitor centers would function combined with parking, restrooms, well in gateway communities, so visitors can be informed visitor education, trailhead access, and oriented prior to entering the area. and food and beverage sales. Often ▪ For the Big Sur study area, multi-agency cooperation visitor centers also allow visitors to between Caltrans and the public land managers—mainly purchase recreation area entrance the U.S. Forest Service and California State Parks—is fees, permits, and passes. important in providing valuable information for all aspects of the corridor. Visitor centers can also be used ▪ Parking areas associated with visitor centers can to influence visitors’ decisions simultaneously function as park-and-ride locations for regarding transit within the area connections to transit. and which destinations they ▪ Kiosks can provide many of the services offered at visitor choose to visit. Discussions centers, including purchasing fees/passes, purchasing with staff personnel can inform permits, making reservations, and providing interpretive visitors of congestion issues and information. Video displays can educate visitors on safety encourage visitors to use alternative and appropriate land stewardship while visiting. transportation. EXAMPLES Visitor centers also often include ▪ The Mono Basin Scenic Area Visitor Center was established based on interagency partnership. It provides information a plaza which has amenities such on Mono Lake, the Inyo National Forest, and Yosemite as a shuttle bus loading/unloading National Park. It also has regional transit connections area, comfortable seating, ways through the Eastern Sierra Transit Authority. for visitors to receive information ▪ Eastern Sierra Interagency Visitor Center when the visitor center is closed ▪ Escalante Interagency Visitor Center (such as map displays), and drinking fountains.
Image by Billy Hustace
94 Chapter 7 | TDM Toolkit Big Sur Highway 1 Sustainable TDM Plan Visitation Ethic
TRAVELER INFORMATION
DESCRIPTION CORRIDOR OPPORTUNITIES A segment of visitor information ▪ Agencies/groups to target: includes visitation ethic—which ▪ Visit Carmel-by-the-Sea includes respecting the area ▪ Visit California’s Destination Stewardship Plan in which you are traveling and ▪ See Monterey (MCCVB) understanding the history of the ▪ Visit SLO CAL place and the natural processes ▪ The Big Sur Pledge, which is a grassroots effort to affecting it. Big Sur is one of the educate visitors on the fragility of the coastline and most dramatic stretches of coastline promote sustainable visitation practices. in California, which makes it a ▪ Target areas with visitor behavior issues target tourism destination and subject to above-average human ▪ Apps and social media impacts. Educating visitors on CONSIDERATIONS environmental stewardship is ▪ Outreach and marketing are main ways to help the public important in protecting Big Sur, understand the importance of stewardship for the coast. so it can be enjoyed by future ▪ Some claim that Big Sur has been “over marketed” and generations. Ways to do this are “under managed”. Marketing strategies should include to tie environmental stewardship efforts for not over-publicizing iconic places. into marketing campaigns, such EXAMPLES as Visit California’s Destination ▪ A NOAA pilot program at Portola Hotel in downtown Stewardship Plan, partnering with Monterey educates visitors about the Monterey Bay National local accommodations and local Marine Sanctuary with videos shown on the hotel television marketing organizations. channels. ▪ Take Care Tahoe educates visitors on Lake Tahoe’s environment and connects people to visitor centers, events, and volunteer opportunities. The effort provides businesses and organizations with educational material on key ways humans are causing environmental impact and how we can change our actions to reduce these impacts.
Image by the Big Sur Pledge
Chapter 7 | TDM Toolkit 95 Restrooms
INFRASTRUCTURE ENHANCEMENTS
DESCRIPTION CORRIDOR OPPORTUNITIES While not directly affecting ▪ Establish regular corridor intervals for facilities transportation demand management, ▪ Signage and messaging to inform public access of restrooms public restrooms are a necessary in fee areas part of creating a positive ▪ Utilize visitor hubs for restroom locations experience for both visitors and CONSIDERATIONS residents. Restrooms within the ▪ Consider better publicizing that restrooms within CSP units corridor should be properly signed are available to the public. so that visitors are aware of their ▪ While the construction of additional public restrooms may locations. Additionally, if restrooms be difficult, locations should be identified as part of an at recreation areas are available to overall corridor effort. the public, this information should ▪ Improve visitor information, signage, and wayfinding. be relayed to the entrance booth attendants.
96 Chapter 7 | TDM Toolkit Big Sur Highway 1 Sustainable TDM Plan Technology Infrastructure
INFRASTRUCTURE ENHANCEMENTS
DESCRIPTION CORRIDOR OPPORTUNITIES Several of the strategies within ▪ Expanded PG&E access to the area south of the Esalen this toolkit rely on technology to Institute distribute information to people ▪ Expanded cell reception and GPS and satellite uplinks in or simply to function. Access the Big Sur area to electricity, cell, and internet ▪ Explore off-grid electricity options such as solar and wind reception is quite scattered along power in areas where infrastructure is wanted, but not the Big Sur coast, so technology feasible within a reasonable period of time improvements would improve the CONSIDERATIONS efficacy of many tools. ▪ Internet and cellular technology improvements are a necessity to making transit technology applications more Additional capacity to electricity effective. These include automated vehicle location systems lines allows for high-speed electric (AVL), which track bus locations via GPS; automated vehicle charging. Expanded or passenger counting systems; systems that automatically track improved electric connections maintenance issues; and transit status signs to announce allow hard-wired variable/dynamic transit arrival times. These improvements all help to ensure message signs. positive rider experiences. Expanded cell phone and internet ▪ Technology infrastructure is a long-term solution and could reception improves the use of take years before implemented. mobile apps, traffic monitoring, ▪ Technology infrastructure enhancements have not been ease of shuttle use, and purchasing done in certain areas due to the level of engineering of permits and reservations online. required to building the area (e.g. extreme steep slopes, no This would also improve response service connections nearby, not enough facilities to make times from emergency medical building the service line worthwhile). service vehicles, affecting both ▪ Technology offers methods to share information without residents and visitors. physical signage that impacts the viewshed Radio improvements are an easy way to increase safety by providing an AM highway advisory station. Highway advisory radios can send out information that can be accessed by anyone traveling the corridor by vehicle or with a radio- enabled device. However, coverage can be spotty due to the corridor’s terrain.
Chapter 7 | TDM Toolkit 97 Geometric Enhancements
INFRASTRUCTURE ENHANCEMENTS
DESCRIPTION CORRIDOR OPPORTUNITIES Geometric enhancements include ▪ Vehicle turnarounds for bus and other vehicle access upgrading intersection designs, turn ▪ Intersection enhancements at the Highway 1/Sycamore lanes, vehicle turnarounds (such Canyon Road junction and the Highway 1/Old Coast Road as roundabouts), turn restrictions, junction signalization, and striping. ▪ Striping “no parking” areas and lane delineation Geometric enhancements are CONSIDERATIONS mentioned in other tools including ▪ Geometric enhancements can lead to reduced conflicts in “Enhancing Viewpoints & Roadside the corridor by eliminating questionable vehicle maneuvers. Turnouts”. ▪ Geometric enhancements can increase the flow of traffic through the corridor. ▪ Geometric enhancements can widen the roadway, which may be difficult to do without building structures and could degrade the coastal environment. They will also be limited by the available right of way. ▪ Geometric enhancements are a long-range solution and can take years to gain approvals/permits and construct. EXAMPLES ▪ Back Bay National Wildlife Refuge has a goal of adding a turn lane and a bypass lane for vehicles turning into the parking lot, so they don’t impede traffic.
Image by Silvrshootr
98 Chapter 7 | TDM Toolkit Big Sur Highway 1 Sustainable TDM Plan Enhancing Viewpoints & Roadside Turnouts
INFRASTRUCTURE ENHANCEMENTS
DESCRIPTION CORRIDOR OPPORTUNITIES The viewpoints and turnouts ▪ High demand recreation areas and attractions where scattered along the Big Sur coast demand regularly overwhelms infrastructure and creates add to the sense of discovery management and congestion conflicts experienced when visiting; the many CONSIDERATIONS viewpoints allow people to pull over ▪ A goal for the adequate spacing of slow vehicle turnouts to enjoy the view whenever they should be established and turnouts enhanced to meet choose. There are select overlooks guidelines. famed for their views that have ▪ Slow vehicle turnouts, where appropriate, could be signed, congestion and visitation issues paved, without views, and meet Caltrans standards for associated with them. Additionally, dimensions and sight distance. there are few existing paved and ▪ Viewpoints should be delineated with natural materials, such signed slow vehicle turnouts in the as boulders, berms, and landscape to prevent people from corridor. parking or walking in certain areas. ▪ The CHMP has a preference for maintaining turnouts as Ways to enhance existing vista unpaved. The Big Sur Land Use Plan states that whereever points include delineating the area, possible porous surfacing materials that allow for drainage paving certain turnouts for slow- should be use. Paving of slow vehicle turnout areas may be moving vehicles, and striping the operationally preferred, but the CHMP prefers unpaved area for parking. facilities to keep with the rugged nature of the area. Improving the overall corridor experience can have the secondary effect of encouraging private shuttle tours and making transit more attractive. A known level of experience can facilitate private investment and rider comfort.
Chapter 7 | TDM Toolkit 99 Electric Vehicle Charging Stations
INFRASTRUCTURE ENHANCEMENTS
DESCRIPTION CORRIDOR OPPORTUNITIES Providing electric vehicle (EV) ▪ Lodging and accommodations charging stations can make Highway ▪ Visitor centers or park-and-rides 1 through Big Sur more accessible ▪ Commercial businesses with activities in the vicinity for electric vehicles. Driving ▪ Private businesses with enough activity through the corridor in an electric ▪ Solar/battery powered charging stations vehicle currently requires advanced ▪ E-bike charging stations planning, given that publicly available charging stations are few CONSIDERATIONS and far between. Increasing the ▪ Monterey Bay Community Power is currently partnering number of EVs traveling through with the California Energy Commission to provide incentive the area is a major way of reducing funding for EV charging stations in Monterey County through the CALeVIP program. The APCD is partnering carbon emissions associated with with several agencies to apply for a for a CALeVIP grant that, Big Sur, while acknowledging the if awarded, would cover SLO County in 2021. preferred style of travel is personal ▪ The SLO Air Pollution Control District is offering incentive vehicles. EV charging stations can grants available for the purchase and installation of EV be placed in preferred parking chargers and related infrastructure in SLO county. In addition locations. to the CALeVIP grant, the county expects to have other funding available for these projects in the foreseeable future. ▪ Existing infrastructure capacity should be evaluated to see if more EV stations could be accommodated. There is currently no PG&E access south of the Esalen Institute. ▪ Consider ways to incentivize making EV charging at private businesses open to the public. ▪ Station locations should take charge duration into account and be located in areas that can provide activities. ▪ The potential use and demand of the EV stations should inform the number of stations and where they are located. ▪ Fast chargers are appropriate for commercial businesses and day use areas, but are more expensive to install. EXAMPLES ▪ Muir Woods National Monument provides two reservable EV parking spaces within the park. They are $3 each. ▪ Caltrans has installed solar/battery powered charging stations at the Camp Roberts and Shandon Safety Roadside Rest Areas.
100 Chapter 7 | TDM Toolkit Big Sur Highway 1 Sustainable TDM Plan Off-Highway Parking
INFRASTRUCTURE ENHANCEMENTS
DESCRIPTION CORRIDOR OPPORTUNITIES Parking at popular destinations— ▪ High-demand recreation areas where parking demand especially at recreation facilities— creates highway congestion issues, including: should be provided at off-highway ▪ Monastery Beach locations to improve safety by ▪ Point Lobos SNR limiting the number of vehicles ▪ Bixby Creek Bridge entering/exiting the roadway and ▪ McWay Falls people crossing the road. Having ▪ Soberanes parking away from the roadway can also preserve the scenic viewshed ▪ Garrapata Beach if the reallocated parking areas CONSIDERATIONS are screened from the coast. Off- ▪ Providing off-highway parking may not be possible in some highway parking can also relieve locations given the extremely steep topography through congestion along the roadway itself much of Big Sur. which can improve highway travel ▪ It is not required that off-highway parking be paved, in fact times and emergency response the CHMP preferred maintaining most roadside turnouts as times. Parking in these off-highway unpaved. The Big Sur Land Use Plan states that whereever possible porous surfacing materials that allow for drainage areas can be striped, depending should be use. Paving of slow vehicle turnout areas may be on the demand and feasibility and operationally preferred, but the CHMP prefers unpaved should provide ADA accessible facilities to keep with the rugged nature of the area. areas. ▪ Land use regulations differ by county. ▪ Provide secure bike parking, where appropriate. EXAMPLES ▪ Sections of the corridor within SLO county have existing off-highway parking areas, many of which have left turn lanes into them.
Chapter 7 | TDM Toolkit 101 Park-and-Ride Lots
INFRASTRUCTURE ENHANCEMENTS
DESCRIPTION CORRIDOR OPPORTUNITIES Park-and-ride lots allow visitors ▪ Expansion of existing park-and-rides to park their cars and travel using ▪ New park-and-rides associated with shuttles transit and shuttles. Park-and-rides ▪ Point Lobos SNR are a good alternate for when ▪ Big Sur area high-demand parking is at capacity. CONSIDERATIONS This disperses the demand for the ▪ Park-and-ride facilities may reduce the number of vehicles high-demand parking areas. In traveling on the roadway in certain areas, thereby reducing order to be successful and fulfill congestion. visitor needs, park-and-rides should ▪ Constructing new park-and-ride facilities will likely require be paired with visitor information access improvements, such as driveway widening and and interpretation (available at intersection enhancements. the park-and-ride itself and on ▪ Park-and-rides could function well with visitor centers. transit), restrooms, bicycle facilities (including secure bike parking), and ▪ Locations should ideally be limited to public lands to avoid approaching property owners for permission to operate and timely transit. for leasing agreements. Park-and-ride facilities can be ▪ Park-and-rides require promotion so that visitors are aware located at the gateways to the of the facilities. corridor or for certain areas ▪ Park-and-rides require more capacity. Due to travel time, the within it. They can operate during duration of time people spend at park-and-rides is longer peak time periods when existing than the parking lot it is replacing. parking facilities are over-burdened. ▪ Park-and-rides can give more people access to an area, if the Park-and-rides require long-term, amount was previously limited by the number of available effective marketing and promotion parking spaces. in order to be successful. Marketing EXAMPLES should message visitors about ▪ Many municipalities provide park-and-ride lots. any fees or required reservations ▪ Rocky Mountain National Park has a park-and-ride at its beforehand. Like transit, park-and- Estes Park entrance. rides need to provide an advantage ▪ Muir Woods National Monument provides park-and-rides in over travel by personal vehicle, several locations. Visitors need shuttle reservations, which unless visitors are given no other can be purchased online in advance. Muir Woods also uses option. dynamic/variable message signs to promote park-and-ride lots.
Image by Eli Brownell & King County Parks
102 Chapter 7 | TDM Toolkit Big Sur Highway 1 Sustainable TDM Plan Shared Use Paths
ACTIVE TRANSPORTATION
DESCRIPTION CORRIDOR OPPORTUNITIES Shared use paths are paved, bi- ▪ Between Carmel-by-the-Sea and Point Lobos SNR directional, and separated from ▪ San Simeon and Cambria areas the roadway. They are open to CONSIDERATIONS pedestrians, bicyclists, and other ▪ Shared use paths require infrastructure enhancements and personal mobility devices (PMDs). may require structures to support the path in areas with Improving an area’s walkability and steep topography and to keep the path outside the scenic bikeability is key to encouraging viewshed. a shift to alternate forms of ▪ Shared use paths can be used in on-street or off-street transportation, making it a pleasant applications. On-street shared use paths would be delineated and accessible experience. Walkable with striping or physical barriers, which could result in lower and bikeable environments, which compliance with drivers (e.g. if only striped, drivers may can be improved by shared use choose to drive or park in the area). paths, increase quality of life and ▪ Shared use paths are a tried-and-true way to encourage visitor experience. They also help people of all ages and abilities to use forms of active to lower the amount of vehicle transportation to access a place. miles traveled and greenhouse gas EXAMPLES emissions. ▪ The East Shore Bike Trail in Lake Tahoe is a 3-mile shared use path that provides access to Sand Harbor in Lake Tahoe Shared use paths follow ADA Nevada State Park from satellite parking areas in Incline guidelines and increase accessibility Village. to active transport for user groups ▪ The Monterey Bay Coastal Recreation Trail in an 18-mile of all abilities. Since shared use long paved path from Castroville to Pacific Grove. It is used paths separate slower forms of by many for recreational activities and commuting to avoid travel from the highway. This congested roads. is especially desirable when encouraging people of all abilities to use active transportation and when coupled with other active transportation TDM strategies such as bike share programs.
Image by Bill Rozak & Tahoe Daily Tribune
Chapter 7 | TDM Toolkit 103 Shared Use Shoulders
ACTIVE TRANSPORTATION
DESCRIPTION CORRIDOR OPPORTUNITIES Highway 1 is currently designated ▪ Work with partners to incorporate paved shoulders along as a Class 3 bicycle route. Highway 1 the highway—either as its own project or coordinated with has constrained shoulder conditions, other enhancements which do not allow cyclists a CONSIDERATIONS bikeable shoulder. ▪ Some areas within the corridor are constrained and will require additional right-of-way. In a few locations, the Highway 1 through the Big Sur terrain constrains the ability for Highway 1 to have paved coast is a common route for active shoulders. travel, especially with long-distance ▪ Approvals and permits are required for work locations bicycle touring. Shoulder widening within the Coastal Zone. efforts would give vehicles room ▪ Shared use shoulders can reduce user conflicts throughout to comfortably and legally pass the corridor. cyclists riding through the area. ▪ Enforcement of no-parking is required to keep “shared-use By encouraging people to bicycle shoulders” available for bicyclists. through the area, shoulder widening efforts can in turn lower the amount of vehicle miles traveled. Shared use shoulders can also allow bicyclists to bypass congested areas. Currently cyclists can get stuck in congested conditions in constrained areas of the corridor.
Image by Bicycling Monterey
104 Chapter 7 | TDM Toolkit Big Sur Highway 1 Sustainable TDM Plan Bicycle Shuttle & Transit with Bicycle Carriers
ACTIVE TRANSPORTATION
DESCRIPTION CORRIDOR OPPORTUNITIES Bicycle shuttles and transit with ▪ Transit served areas that are not constricted by turning bicycle carriers are ways to movements encourage more people to use CONSIDERATIONS multiple forms of alternative ▪ Big Sur is known for its steep terrain, so giving people transportation. These methods can the option to use transit for a portion of their trip may be used for recreational cyclists or encourage them to use alternative transportation for the for commuters. Bicycle shuttles are entirety of their trip. a valuable service in areas where ▪ Equipping transit with bicycle carriers can be a longer-term people are challenged by steep solution than a full-fledged bicycle shuttle program, since terrain, long distances, and riding they build off existing services. along busy stretches of highway. EXAMPLES In these types of areas, people are ▪ The Glacier National Park bicycle shuttle provides access more likely to cycle if given the to the Going-to-the-Sun Road (GTSR) two months every option to pair it with another form spring, prior to the road opening to vehicles. The shuttle’s of transit. bicycle trailer hold up to 16 bicycles. The park also formed a volunteer bike patrol program to provide a park presence as Bicycle shuttles can be used to popularity for the service increases. transport people for one leg of their ▪ University of California, Santa Cruz offers a free bicycle journey, allowing them to ride their shuttle to university affiliates. The shuttle arrives at bicycles for the rest of the journey 15-minute intervals and is funded by parking fees. Bicycles while freeing up space on transit for are loaded on a bike trailer and catch a ride to the campus. others, or to ride their bicycles at ▪ Cape Cod National Seashore offered a bicycle shuttle, which the destination and ride transit both provided visitors with access to miles of bicycling trails. The directions. service was developed by a partnership between the regional transit authority, the NPS, and the Cape Cod Commission. Transit with bicycle carriers allows people to travel greater distances than they could by just using transit or cycling and caters more to commuters and residents. This allows people to cycle to transit intercept locations or to bicycle to their destination if bus stops have large distances between them.
Image by Huckwagons
Chapter 7 | TDM Toolkit 105 Pedestrian Crossing Enhancements
ACTIVE TRANSPORTATION
DESCRIPTION CORRIDOR OPPORTUNITIES Pedestrians crossing the roadway ▪ High demand areas with significant pedestrian traffic may cause vehicle delays and close crossing the roadway calls, especially when pedestrians CONSIDERATIONS cross the road or walk along the ▪ Grade separated crossings are preferred to reduce the need road on blind curves. There are for staffing and minimize conflicts with motorists a variety of pedestrian crossing ▪ Crossing enhancements can include lighting for enhanced enhancements that can be employed nighttime visibility and safety. Per the Big Sur Land Use in the corridor, including: Plan, exterior light sources should not be directly visible from Highway 1. ▪ For special events at high-use pedestrian areas could warrant EXAMPLES the use of authorized temporary ▪ The CSP Hatton Canyon Property has an existing flaggers; pedestrian tunnel under Carmel Valley Road along the Class 1 path. ▪ Separation between pedestrian areas and the roadway can ▪ The City of Davis provides multiple tunnels and ensure that people cross at underpasses along its Class 1 bike paths to avoid designated locations and create a intersections with busy thoroughfares. better pedestrian environment; ▪ Painted crosswalks at intersections to create a continuous sidewalk network; ▪ High-visibility crosswalks, which can be high-visibility pavement markings, or pedestrian-actuated beacons, if designed according to coastal viewshed requirements; and ▪ Above- or below-grade pedestrian crossings, including tunnels and bridges.
Image by Seth Smigelski
106 Chapter 7 | TDM Toolkit Big Sur Highway 1 Sustainable TDM Plan Traffic Data Collection & Analysis
DATA COLLECTION & ANALYSIS
DESCRIPTION CORRIDOR OPPORTUNITIES Traffic monitoring and analysis ▪ Permanent traffic count stations (best suitable locations will provide a baseline when considering be determined during implementation): other TDM tools to implement. It ▪ Carmel Highlands area provides information on overall ▪ County Line and segment-specific vehicle use, ▪ Hearst/San Simeon area parking utilization, and real-time ▪ Parking lots roadway conditions. ▪ Recreation area entrances Miovision cameras provide a live CONSIDERATIONS display of traffic conditions. They ▪ Data collection will require additional funding to install new can transform video into analytics, and/or permanent monitoring stations. where it is converted into usable ▪ Analyzing results can be time consuming. data for planners. ▪ Long-term monitoring should be used to ensure that the chosen solutions are still reducing congestion. Automated Permanent count stations data gathering is a way to simplify the ongoing data provide reliable, long-term traffic gathering process, but this can be costly. information. Permanent traffic ▪ Data collection is not a solution to congestion issues, but monitoring shows the long-term is a prerequisite to understand current conditions. Data impacts and effectiveness of TDM collection must be used along with other TDM tools. opportunities. ▪ The lack of internet and electricity connection may inhibit where traffic monitoring devices can be placed. Parking occupancy counters or closed circuit cameras can assess EXAMPLES parking availability. Real-time ▪ Grand Teton National Park conducted traffic monitoring parking information lets visitors across several seasons. Methods used included tube counters, know when parking areas have inductive loop detectors to monitor parking lots, and trail counters along shared use paths. reached capacity and can lower unnecessary vehicle trips. Data can ▪ Glacier National Park’s Recreation Access Display provides also be user-generated, through an real-time updates on the park’s website to influence visitors’ travel decisions. The feature shows parking area statuses, app-service or by staff. typical parking area fill times, area closure times from the Real-time traffic data can be tied day before, and best times to visit popular destinations. with other information such as entrance station wait times, weather conditions, road conditions, and overall traffic congestion. Image by MetroCount
Chapter 7 | TDM Toolkit 107 Visitor Surveys
DATA COLLECTION & ANALYSIS
DESCRIPTION CORRIDOR OPPORTUNITIES Visitor surveys are a necessary ▪ Visitor centers tool in understanding the baseline ▪ On-board transit or shuttles conditions and understanding the ▪ Mobile apps or websites (e.g. travel websites) potential efficacy of TDM strategies. ▪ State Parks and U.S. Forest Service day use and overnight Surveys can take multiple forms: areas ▪ Intercept surveys—someone in ▪ Convention bureaus, chambers, and transportation agencies the field has people using the CONSIDERATIONS area take a survey on the spot; ▪ Survey results are heavily influenced by the sample size, ▪ Postcard/mail-in surveys— seasonality, and duration the survey is open. If any of postcards are distributed, and these elements are too small, the results can be skewed by people send completed surveys abnormalities. Skewed results should not be used as quality to a designated address; evidence toward using certain TDM strategies. ▪ Online surveys—various web ▪ The format and questions asked in a survey should be platforms allow surveys to be objective and wording should not influence the surveyee’s taken online and with mobile answers in any way. Survey questions should also have open- devices. ended response options, to allow surveyees an “out” if none User information, such as visitor of the available answers apply to them. origin-destination data, is important ▪ Visitor surveys, as well as traffic monitoring, should be in understanding the travel styles used to understand baseline peak congestion conditions, in of users. Visitor surveys can also order to understand the “worst case scenario” of congestion within the corridor. monitor visitor perceptions and preferences. For example, surveys ▪ The time to process visitor surveys can take a long time. Visitor surveys must be conducted far enough in advance to can be used to find gaps with be applicable and usable. existing signage and wayfinding devices, along with satisfaction ▪ Consistency in survey questions is needed to compare data over a designated time period and review trends. with existing services and facilities available throughout Big Sur. ▪ Surveys should include questions about bicycling to gauge current and future uses and needs. EXAMPLES ▪ Prior to the start of this Plan, the consultant team conducted a postcard survey to analyze visitor trips through Big Sur. Future origin/destination information should have a goal for more responses and additional data sources. ▪ USFS apps include visitor satisfaction surveys and a Image by Destination Analysts comment section to receive ongoing visitor input.
108 Chapter 7 | TDM Toolkit Big Sur Highway 1 Sustainable TDM Plan Parking Restriction Zones
PARKING MANAGEMENT & ENFORCEMENT
DESCRIPTION CORRIDOR OPPORTUNITIES “No Parking” zones, where ▪ Point Lobos State Natural Reserve legally implemented, can help ▪ Bixby Creek Bridge improve traffic flow and manage ▪ McWay Falls/Julia Pfeiffer Burns State Park congestion along a highway. Parking CONSIDERATIONS restrictions require increased ▪ Without enforcement, parking restrictions may not be staffing for enforcement. It can also effective, and people may park in the area anyway. require that the fine for parking in ▪ No parking zones need to be a long enough distance, so that a no parking zone is increased to people do not park outside of the zone and walk back to the a point that it discourages illegal destination, which would lead to the same safety issue of parking. people walking along or across the highway. To maintain overall public access, ▪ Parking restriction zones must have associated parking fines (see the Increased Parking Fines section) that are greater parking availability should be than an amount people are willing to pay to park. reallocated elsewhere or a decision should be made that the recreation ▪ Signage for “no parking” zones needs to be in accordance with the MUTCD. site is at or over capacity. If parking is simply limited, this could lead to ▪ The California Coastal Act has a goal for coastal access that motorists continually circulating must be balanced with parking opportunities. the area until a parking space ▪ A local ordinance must be passed to develop no-parking opens. Restricting roadside parking zones in California. can improve access for emergency EXAMPLES vehicles. ▪ Muir Woods National Monument restricted parking along its entrance road. ▪ SR 28 along the East Shore of Lake Tahoe has no parking zones to restrict roadside parking and encourage transit use.
Image by PASC Gallery
Chapter 7 | TDM Toolkit 109 Managing Turnouts During Peak Visitation Periods
PARKING MANAGEMENT & ENFORCEMENT
DESCRIPTION CORRIDOR OPPORTUNITIES At popular roadside destinations ▪ Bixby Creek Bridge on popular weekends along the corridor, managing ▪ McWay Falls in Julia Pfeiffer Burns State Park turnouts during peak visitation CONSIDERATIONS periods may be necessary in ▪ If turnouts are closed, there needs to be an alternative way order to relieve congestion on the to access the destination and parking must be reallocated highway and allow buses to reliably elsewhere, so that access isn’t reduced. operate. This tactic is employed at ▪ If no alternative is provided congestion could worsen as several recreation areas that have people choose to stop in the roadway. known congestion issues. CHP can ▪ Managing popular turnouts needs to be monitored and have choose to close a turnout entirely enforcement, which would require coordination with law during busy weekends if it poses enforcement. a safety hazard. However if this EXAMPLES is the chosen solution, alternative ▪ Glacier National Park introduced temporary “soft closures” parking and stopping areas should at full parking lots, telling visitors to find parking several be provided to address the goal of miles down the road and take a shuttle back to the lot. coastal access. ▪ Sequoia National Park closes the Moro Rock/Crescent Meadow Road on weekends and holidays. The area can only be accessed by shuttle, bicycle, or on foot. ▪ Bryce Canyon closes viewpoints on peak weekends and only allows access by transit.
110 Chapter 7 | TDM Toolkit Big Sur Highway 1 Sustainable TDM Plan Active Management of High Visitation Areas
PARKING MANAGEMENT & ENFORCEMENT
DESCRIPTION CORRIDOR OPPORTUNITIES Active management of popular ▪ High demand use areas destinations allows highway traffic CONSIDERATIONS to move smoothly through the area ▪ Active management requires additional staff for congested by having people on the ground days. monitoring roadway conditions. ▪ Active management can place an extra burden on law Methods of active management enforcement. include using pedestrian flaggers, ▪ Visitor experience can increase by having available staff to having CHP, Sheriff, or California answer questions. State Park rangers on-site to act as EXAMPLES enforcement. Having additional ▪ Pedestrian flaggers are used by many schools and airports staff people on-site to direct visitors around the country to maintain the flow of traffic and allow while they are in their vehicles people to safely cross the road. can also elevate awareness of the ▪ Many popular public lands use active management strategies agencies operating in the corridor. during weekends and holidays. Active management manages congestion. On-site staff people can relay parking lot statuses to visitors and can update visitor information, such as through variable/dynamic message signs, websites, or through social media.
Image by Michael Gallacher / The Missoulian
Chapter 7 | TDM Toolkit 111 Parking Fees
PARKING MANAGEMENT & ENFORCEMENT
DESCRIPTION CORRIDOR OPPORTUNITIES The best application for paid ▪ Businesses and recreation opportunities in Big Sur area parking is in areas that are a short ▪ Off-highway parking areas walk from commercial or recreation CONSIDERATIONS areas, or close to transit/shuttle ▪ The price of parking should align with the market value to service. When parking is free, ensure that parking is 90% of capacity during peak periods. people tend to drive rather than ▪ Parking should be charged in hourly or daily increments. take transit. Charging for parking Having a daily fee encourages users to use satellite parking can also encourage people to park and to “park once”. their car once and use transit or ▪ In order to improve accessibility of the parking fees, active transportation, rather than payment should be offered through multiple methods— driving to individual destinations. including cash, credit card, and mobile app. When parking is charged, people ▪ Parking fees can also be used to fund transit or visitor tend to consider taking transit, services. This is especially important since revenue sources especially as the price to park do not otherwise exist to fund additional transit service increases. through the corridor. ▪ Implementing parking fees is more feasible in formal Distance-based pricing is another parking lots. method to maintain affordable parking options. Parking closer EXAMPLES to the destination can be more ▪ The Lake Tahoe region is evaluating the opportunity for parking fees to be part of an overall regional recreation fee expensive, with less expensive that can be shared between agencies and organizations to options further away. Parking costs fund transit and other enhancements. can also be tiered to align with ▪ The Parks Management Company (PMC) manages the visitor demand. Pricing can be set USFS day use areas and campgrounds along the corridor. to be most expensive during peak PMC Annual Day Use Passes can be purchased on their periods and less expensive during website, by mail, or by phone and provide access to the four other times, to disincentivize USFS day use areas. These passes can also be purchased visiting during congested periods in-person at Pfeiffer Beach Day Use Area and Sand Dollar (see the Incentives & Congestion Beach Day Use Area. Pricing section).
Image by Cale America
112 Chapter 7 | TDM Toolkit Big Sur Highway 1 Sustainable TDM Plan Reservation & Permit Systems
PARKING MANAGEMENT & ENFORCEMENT
DESCRIPTION CORRIDOR OPPORTUNITIES Reservation systems can be used in ▪ Pfeiffer Beach a variety of scenarios—at entrance ▪ Point Lobos State Natural Reserve stations, campgrounds, or specific CONSIDERATIONS popular attractions to monitor the ▪ Visitors must have plenty of advanced knowledge of the flow of visitors. Reservations and system, so visitors don’t arrive to the destination and learn permits can streamline the flow of that reservations or permits are required for entry. visitors, by establishing designated ▪ The limited cell coverage along the Big Sur coast reinforces entry times. the importance of prior information, since visitors will need to know about the system before entering the coast. ▪ Reservation systems allow visitors a way to prepay entrance ▪ Reservation systems may decrease congestion at entrance fees for recreation areas. This stations by reducing transaction times and at popular saves time at entrance stations, destinations by capping the amount of people who can enter. where long vehicle queues can ▪ Online reservation systems and permit systems have extend into the roadway. It is potential to decrease user education by removing in-person also possible to add a bypass conversation during the entrance fee process. lane at entrance stations for ▪ Reservation and permit systems have the potential to people who have prepaid. remove the sense of discovery associated with Big Sur by ▪ Reservations can be made creating a more structured experience. available through a variety of ▪ Converting to a permit or reservation system can impact methods—either on the internet, public access to the coast. This could compete with the in person at visitor centers California Coastal Act’s goal to preserve public access in the or local accommodations, or Coastal Zone. Implementation of a permit or reservation through kiosks and electronic system would require a study and coordination with local fee payment systems. leadership and the CCC. Permit systems are used in EXAMPLES congested areas to limit the ▪ Parking reservations can be made for select parking areas in amount of people entering the Yosemite Valley. area to preserve a positive visitor ▪ Mesa Verde National Park requires visitors to have experience and decrease degradation reservations on guided tours in order to access the park’s of the natural environment. cliff dwellings. ▪ Select USFS recreation areas within Oregon and Washington require the Northwest Forest Pass to enter.
Image by the National Park Service
Chapter 7 | TDM Toolkit 113 Incentives & Congestion Pricing
PARKING MANAGEMENT & ENFORCEMENT
DESCRIPTION CORRIDOR OPPORTUNITIES Congestion pricing is a tool ▪ Recreation areas throughout the corridor to disincentivize traveling to CONSIDERATIONS destinations during congested ▪ Incentives and congestion pricing can encourage a mode periods. Monetary incentives can shift for visitors to bicycle or walk. encourage people not to travel ▪ Increased fees increase revenue. during busy times. Congestion ▪ Incentive pricing can potentially decrease congestion. pricing adjusts the cost of ▪ Congestion pricing can create challenges for lower-income transportation facilities, including populations. roadways, parking areas, and ▪ Gateway communities and community stakeholders may entrance fees, to be more cost see congestion pricing as potentially decreasing tourism effective during less crowded times. and may disagree with it because their revenue stems from Fees are increased during congested visitation. periods or seasons to disincentivize ▪ It is not possible to charge tolls on Highway 1 through Big traveling during these periods, or Sur, so congestion pricing would be implemented by public to incentivize the use of alternative land managers. modes of transportation. Fee ▪ If designed adequately, dynamic parking fees can fund changes can vary by season, day of additional transit service for passengers to ride “free” the week, or time of day. through the study area. Financial incentives can include ▪ Requires coordination between agencies and can be challenging to implement given the dispersed recreation reducing or eliminating entrance areas. fees if arriving by alternative modes. EXAMPLES ▪ Yosemite National Park increases its entry fees during the summer to account for visitation increases. The Park also offers reduced prices if not arriving by personal vehicle. ▪ Sandy Hook National Recreation Area offers parking fees, as opposed to entrance fees. People not arriving in personal vehicles therefore do not have to pay a fee to use the area.
Image by River North Photography / iStock
114 Chapter 7 | TDM Toolkit Big Sur Highway 1 Sustainable TDM Plan Physical Barriers
PARKING MANAGEMENT & ENFORCEMENT
DESCRIPTION CORRIDOR OPPORTUNITIES Physical barriers have several ▪ Viewpoints and roadside shoulders throughout the corridor different applications with CONSIDERATIONS regards to transportation demand ▪ Physical barriers can reduce risks along the corridor by management. They can help to preventing people from driving off the road. minimize human disturbances ▪ Permanent barriers can be expensive. on the environment by limiting ▪ Barriers can improve the flow of traffic by limiting turning the extent people can travel with movements and controlling travel lane directions. their cars. They can prevent the EXAMPLES widening of turnouts and shoulders ▪ Several of the vista points and turnouts within the corridor into previously vegetated and/or are delineated using boulders and earthen berms. unstable ground. They can increase ▪ CHP has coned of portions of SR 89 in Lake Tahoe during safety through the corridor by summer and winter months to prevent visitors from parking preventing people from driving off illegally. the edge of the highway. Barriers can also be used to control travel lane directions and to restrict turn movements. Barriers, whether permanent or movable, are also a way to prevent parking without using more traditional parking management enforcement methods. There are many types of barriers including boulders, berms, traffic cones, curbing, planting strips, metal roadside barriers, and work zone barriers.
Chapter 7 | TDM Toolkit 115 Increased Parking Fines
PARKING MANAGEMENT & ENFORCEMENT
DESCRIPTION CORRIDOR OPPORTUNITIES Increasing parking fines can be a ▪ Popular destinations where roadside parking is way to lower the amount of people overwhelmed; or roadside parking outside of recreation parking illegally on the roadside areas with entry fees in areas with parking restrictions. ▪ Point Lobos SNR The parking fine needs to be high ▪ Bixby Creek Bridge enough that people do not accept ▪ Andrew Molera State Park the potential parking ticket as ▪ McWay Falls a “parking fee”. Additionally, the CONSIDERATIONS fee must be clearly indicated to ▪ Increasing parking fines can take longer to implement and motorists to prevent people from may require regulatory changes. being unknowingly penalized. ▪ Parking fines require enforcement, to prevent illegal parking. There should also be a clear distinction between “no parking” EXAMPLES and “no stopping” zones along ▪ The SR-28 Corridor Management Plan for Lake Tahoe the highway. This can help avoid worked with a local judge to increase fees for illegal roadside instances where visitors may think parking to more than $300. The amount was established as the “tipping point” at which people would not knowingly they will be ticketed for pulling park illegally. over to let faster vehicles pass and prevent people from parking in slow-vehicle turnouts.
116 Chapter 7 | TDM Toolkit Big Sur Highway 1 Sustainable TDM Plan Technology & Outsourcing Enforcement
PARKING MANAGEMENT & ENFORCEMENT
DESCRIPTION CORRIDOR OPPORTUNITIES There are options for using other ▪ High demand areas of Highway 1 forms of enforcement to decrease CONSIDERATIONS CHP, the County, and CSP’s burden ▪ Technological enforcement can initially be quite costly but with policing the corridor. License may pay for itself rather quickly through parking fines. Plate Recognition (LPR) systems ▪ In Monterey County, the current ticket price is $28. can be used to scan entrance EXAMPLES stations or parking areas at regular ▪ The bridges in the San Francisco Bay Area use LPR systems intervals to enforce parking to regulate cars going through FasTrak lanes. regulations. Enforcement can also ▪ California Polytechnic State University, San Luis Obispo be outsourced to a third party, such adopted LPRs to enforce parking to relieve the University as a private security or enforcement Police Department. agency, to increase the capacity of ▪ Many parking areas and businesses hire private enforcement enforcement staff. companies to relieve the burden on local law enforcement.
Chapter 7 | TDM Toolkit 117 REFERENCES
Colorado Department of Transportation, Transportation Demand Management Toolkit - October 2002 Big Sur Coast Highway Management Plan - 2004 National Park Service Active Transportation Guidebook - July 2018 National Park Service Congestion Management Toolkit - March 2014 NACTO Transit Street Design Guidelines
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119 BIG SUR HIGHWAY 1 SUSTAINABLE TRANSPORTATION DEMAND MANAGEMENT PLAN