Century via the Wisconsin Bicycle Transportation Plan - Wisconsin DOT
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In surveys, people have stated that they
Bicycling into the 21st would be more likely to bicycle if cycling were
Century via the Wisconsin made safer and more convenient. This plan
Bicycle promotes the increased use of bicycling.
Bicycling benefits Wisconsin in many ways:
Transportation Plan improving health, moving people and
allowing them to park inexpensively,
(A Summary of the Final Plan) reducing congestion and air pollution, and
providing a primary means of transportation
This summary outlines the key elements of (along with walking) for children and
the Wisconsin Bicycle Transportation Plan households with no car or driver.
prepared by the Wisconsin Department of
Transportation (WisDOT) with the Bicycling plays an important role in moving
assistance of a Bicycle Advisory Committee. people. WisDOT recognizes the importance
The vision statement for this plan is: of the bicycle as a legitimate mode of
transportation that can move considerable
To establish bicycling as a viable, numbers of people, especially in urban
convenient and safe transportation areas and communities. The goals of this
choice throughout Wisconsin. plan are to encourage bicycling and increase
the number of bicyclists in Wisconsin. This
In many Wisconsin communities, bicycling plan presents a blueprint for improving
and walking are the primary ways people bicycling conditions and encouraging
get to school. Bicycle trips also make-up bicycling in the state, and clarifies WisDOTs
approximately 1% to over 5% of all work- role in that effort.
related trips in Wisconsins metropolitan
areas during the peak bicycling months. As Lastly, but equally important, safety has
Wisconsin moves into the 21st century, it is always been a high priority for WisDOT.
likely that an even greater number of people Today, thousands of bicyclists use state and
will be bicycling for commuting, utilitarian, local roads for bicycle travel. WisDOT is
social, recreational, or exercise purposes. committed to considering the needs of
bicyclists when roadway improvements are
made. This is consistent with national
requirements and guidelines and is viewed
as means of integrating bicycling into the
current transportation system.
Defining the Role of this Plan
Ensuring an interconnected transportation
system across government boundaries and
highway jurisdictions that can work safely for
bicyclists is vital to achieving the goals of this
plan. The plan identifies both state and local
roles and responsibilities necessary to
Bike lane shoulder on Hwy 23 achieve this interconnected system. It
addresses three different levels of state
Wisconsin Bicycle Transportation Plan Summary September 1998interest in or responsibility for bicycle or reconstruction of the state-interest system.
transportation: state-owned, state-supported, Furthermore, the Wisconsin Statutes state
and state-interest. that WisDOT shall assist any regional or
municipal agency or commission in the
The state-owned system includes the State planning, promotion and development of
Trunk Highway system (approximately 12,000 bikeways.
miles). This system is planned, designed,
constructed and maintained by WisDOT. As with any plan, the successful
Bicycle accommodations on this system are implementation of many of the recommended
governed by WisDOTs policies and actions is dependent upon the level of funding
decisions. at federal, state and local levels. Additionally,
many of the improvements, especially in
The state-supported system includes urban and suburban areas, will be a matter
locally-owned roadways (including of local implementation. WisDOT cannot
connecting highways) where there is state commit the financial resources of other
and federal investment in local government agencies or public bodies, nor can it require
(county, village, city) projects. WisDOT bikeway accommodations on the local
collaborates in the decision-making process system.
for projects on these routes, and thus
influences the planning and design decisions Plans Goals and Objectives
made for those improvements, including the In light of the plans vision statement, there
implementation of bicycle accommodations. are two primary goals of the bicycle plan:
¨ Increase levels of
The state-interest system includes other
bicycling throughout
local streets and town roads. A substantial
Wisconsin, doubling
amount of bicycle travel occurs on this system
the number of trips
and its connectivity to the other systems is of
made by bicycles by
major importance. WisDOT has an interest
the year 2010.
in ensuring that bicycle systems are
interconnected and that this system serves ¨ Reduce crashes involving
both the mobility and access needs of bicyclists and motor
bicyclists. However, unlike the other two vehicles by at least 10% by
systems, WisDOT has no oversight the year 2010.
responsibilities for planning and designing
this system. This plan therefore The following objectives have been
recommends, rather than requires, the types established to attain the plan goals:
of bicycling accommodations needed on this Objective 1 - Plan and design new and
system. improved transportation facilities to
accommodate bicyclists and encourage their
The goals, objectives, and implementation use.
actions included in this plan apply directly to
the state-owned and state-supported Objective 2 - Expand and improve a
systems. However, WisDOT will work with statewide network of safe and convenient
local units of government to encourage the routes for bicycle transportation and touring,
application of these goals, objectives, and including safe and convenient access to and
actions in the planning, design, construction through the states urban areas.
Wisconsin Bicycle Transportation Plan Summary September 1998Objective 3 - Provide consistent safety
messages and training to all roadway users
by expanding the range of education
activities through driver licensing and
training, bicycle safety education, increasing
understanding of traffic laws, and provision
of public service information.
Objective 4 - Improve the enforcement of
laws to prevent dangerous and illegal
behavior by motorists and bicyclists.
Objective 5 - Encourage more trips by Bicyclist in narrow lane
bicycles by promoting the acceptance and residents, age five and above, are made by
usefulness of this transportation mode. bicycle.
Current Conditions for Bicycling Bicycling is a very popular means of making
Little is known about the level of bicycling in trips to and from school. This applies to
Wisconsin. Every 10 years, the U.S. Census college students, as well as to elementary
Bureau reports information for a persons and middle school students. In college cities,
usual and predominant means of traveling a significant portion of all school-destined
to work. However, the census reports trips are made by bicycle. The University of
information for the last week in March, not Wi s c o n s i n - M a d i s o n Tr a n s p o r t a t i o n
the best time for bicycling in a northern state Department annually surveys students and
like Wisconsin. According to the 1990 employees and has consistently found that
census, 0.5% of the Wisconsin workforce about 10% of all employees and about 25%
commuted to work by bicycle during census of off-campus students commute to the
week. Bicycle use for the summer months University by bicycle during good weather
would be considerably higher. Despite months.
inclement conditions of the census survey
week, bicycle use for work trips exceeded 1% While conditions for bicyclists vary - from
in several metropolitan cities. In the City of low traffic town roads and city streets to very
Madison, 3.3% of all residents commuted to busy urban thoroughfares - roadways have
work by bicycle, which was several times generally been built with little consideration
higher than the percentage of bicycle of bicyclists. Wisconsins county and town
commuters in such warmer weather and road systems are considered to be some of
larger metro areas as Dallas, Orlando, and the best roads for bicycling in the Upper
Atlanta. Midwest. However, this is due to their low
traffic volumes, good surface conditions, and
Another source the 1995 National picturesque appeal, rather than to
Personal Transportation Survey (NPTS) consideration for the needs of bicyclists.
can be used to provide an estimate of bicycle Most of the rural State Trunk Highway
use in the state. The NPTS provides a year- system now has a three-foot or wider paved
round sample of households which is then shoulder. While shoulders were generally
weighted and adjusted to represent the entire paved for maintenance and safety purposes,
population. According to the 1995 survey, they also provide suitable accommodation
1.8% of all trips made each year by Wisconsin for bicycle travel.
Wisconsin Bicycle Transportation Plan Summary September 1998Few Wisconsin communities can genuinely repeatedly at all ten meetings: people wanted
be described as bicyclist-friendly. Many of to have a safer bicycling environment and
the streets in urban areas are both low additional bikeways throughout the state.
volume and low speed, making them suitable Specifically, many people were concerned
short-distance routes for adult and most with motorists treatment of bicyclists and felt
child bicyclists. However, despite these that more education for both motorists and
relatively positive conditions, most major bicyclists is essential. People almost
urban streets in the state do not have bike universally supported current improvements
lanes or wide outside lanes to provide safer and safety programs that benefited bicyclists,
and more convenient conditions for but wanted the plan to recommend that these
bicyclists. improvement and programs be implemented
more extensively across the state.
In newly developed or developing areas, a
grid system of roads has often been set-aside Benefits and Impacts of
in favor of a more hierarchical system, where Bicycling
most trips are channeled from local streets The benefits of bicycling can be generalized
to major streets. In such situations, bicyclists into the following categories: health,
have been left with few options, other than to transportation, safety, environmental,
travel on major roadways to make important transportation choice, efficiency, economic,
connections to destinations both on and off and quality of life benefits. Costs are
these roadways. According to an assessment generally identified as those that are directly
of street conditions conducted by WisDOT related to the increased costs of adding
in 1993 and 1994, just 36% of major urban bicycle accommodations to roadway
streets were considered wide enough to be improvement projects.
suitable for bicycling. The remainder lacked
wide curb lanes, bike lanes, bicycle paths or Bicycling offers health benefits similar to any
paved shoulders. other form of cardio-vascular exercise.
Bicycling, like walking, can be worked into
Many county and town roads adjacent to peoples daily activities so it becomes part of
urban areas, which may have been fine for their regular routines, thereby freeing up the
bicycling just 10 years ago, have seen time it would otherwise require. This is a
tremendous increases in traffic volumes due major reason why bicycle commuting is
to new development. Most of these roadways popular among many individuals. Bicycling
do not have either paved shoulders or lanes is not only good for ones health, but it also is
that are wide enough to provide adequate environmentally friendly. When bicycle trips
lane sharing for bicyclists and motorists. As replace motor vehicle trips, air emissions can
a result, bicyclists often feel that they are be reduced. These reductions can be
being squeezed off the roadway by motorists considerable within urban areas where
who decide to pass without adequate safe bicycle use is high.
clearance.
All roadway users benefit when bicycle
Public meetings were held midway through accommodations are incorporated into
the development of this plan, and for the roadway projects. Bicycle lanes, paved
presentation of the final draft plan. Two shoulders, and wide outside travel lanes
concerns were voiced consistently and generally require little additional pavement,
Wisconsin Bicycle Transportation Plan Summary September 1998yet are important factors in improving The number of bicyclists injured in reportable
roadway safety and capacity. crashes with motor vehicles peaked at 2,034
in 1987 and has generally decreased since
then to 1,632 in 1995. The majority of
bicyclists in crashes were children. In fact,
about 57% of all bicyclists in crashes were
under 16 years of age, with 10 to 15 year
olds alone accounting for 39% of the total.
This situation is consistent with national
figures.
According to data from 1987 to 1993, the vast
Wide outside travel lane majority (82%) of all bicycle crashes occurred
Lastly, bicycles are a relatively inexpensive in urban areas (places over 5,000 people).
means of personal transportation. They offer However, only 21% of all bicyclist fatalities
the flexibility of an auto, but often afford the occurred inside those communities. In
rider a real time advantage over transit and contrast, only 5% of all bicycle crashes, but
autos for short trips. Most importantly, 26% of bicyclist fatalities, occurred on rural
bicycles provide people with another State Trunk Highways. Likewise, only 3% of
transportation option, which is critical to those all bicycle crashes occurred on County Trunk
people - young and old - who do not possess Highways, but 24% of bicyclist fatalities
a motor vehicle drivers license. occurred on those highways.
The cost of implementing this plan ranges Most of the crashes occurred on local urban
from $3 million to $4 million per year for roads where the speed limits are low. In fact,
improvements to accommodate bicycles on 79% of all crashes occurred where the posted
the State Trunk Highway system. These speed for vehicles was 25 or 30 mph.
accommodations can be in the form of paved However, fatal and severe injury rates
shoulders, wider bridges, bicycle lanes, or increase dramatically where speed limits are
bicycle paths. Of these improvements, higher.
paving shoulders is the least expensive,
largely because wide gravel shoulders While a detailed study of crash types in
already exist on most State Trunk Highways. Wisconsin has not been conducted, national
studies have found that three types of crashes
Better News About Crashes account for the vast majority of bicyclist/
motorist crashes involving children: bicyclist
Because a goal of the Wisconsin Bicycle
riding out from a driveway at a mid-block
Transportation Plan is a 10% reduction in
location; bicyclist riding out (failing to yield)
the number of bicyclist crashes, it is important
at a controlled intersection; and bicyclist
to understand the nature and frequency of
making an unexpected turn or swerving into
crashes today. During the past 25 years,
traffic.
the number of bicyclist fatalities resulting from
collisions with motor vehicles in Wisconsin
The most common types of crashes involving
peaked at 40 in 1973 and has generally
adult cyclists are markedly different. An
decreased since then to a low of 9 in 1994.
interesting and helpful account of crash types
Wisconsin Bicycle Transportation Plan Summary September 1998for adult bicyclists is provided by a study safety for bicyclists while still maintaining
conducted in the City of Madison where 72% sound performance of the system. For
of all bicyclists in reportable crashes were education and enforcement measures,
20 years of age or older. According to this WisDOT, local governments, enforcement
study, two major crash types accounted for agencies, school districts and civic groups
50% of all crashes in Madison: motorist need to continue to expand programs on
turning or merging into the path of a bicyclist bicycle traffic safety. This includes adult
(34% of all crashes); and motorist driving courses such as Effective Cycling .
out (failing to yield) from a stop sign (16% of WisDOT can assist in education and
all crashes). Of these two crash types, a enforcement by continuing to provide and
motorist making a left turn and failing to yield disseminate important instructional and
to a bicyclist approaching from the opposing informational brochures and safety literature,
direction was the most common. including guides that will expand knowledge
of laws governing the safe operation of
Safety Strategies bicycles and motor vehicles.
The focus of much of this plan is on
One of the most effective means of reducing
identifying physical improvements that can
the severity of crashes (crash intervention)
improve the bicycling environment.
is through the use of helmets. Helmet
However, a comprehensive approach
promotions, bulk purchases, peer and adult
involving education, enforcement, and
use of helmets, education in the correct
encouragement is essential. Even the best
wearing of helmets, and parent/teacher
bikeway and roadway facilities can be
education about crashes are all means of
unsafe if bicyclists and motorists use them
encouraging increased helmet use.
improperly and do not respect each other.
The plans safety strategies are based on a
Emergency Medical Service (EMS) response
4 Es approach (engineering, education,
is vitally important and is the only response
enforcement, and encouragement), but also
measure recommended in this plan. EMS
involve crash prevention, intervention, and
services are currently offered in most places
response measures.
in Wisconsin, and this plan calls for the
continuation and support of these services.
Much of the success of these strategies de-
pends on local implementation of the above
actions. Communities must analyze and pri-
oritize bicycle safety problems, focus educa-
tion and enforcement actions on the most
common types of crashes, and conduct edu-
cation efforts targeted at the user groups most
in need. Involvement of local communities is
essential. While WisDOT can provide the
Kids in training
tools to assist local communities, it can not
provide many of the 4-Es services directly
Engineering measures such as paved
to bicyclists.
shoulders and wider lanes should improve
Wisconsin Bicycle Transportation Plan Summary September 1998Urban and Rural Bicycling
Strategies should be focused on this identified system.
These priority corridors and linkages are
There are two major geographic components primarily on lower volume state and county
to this plan - urban (including suburban and highways, although, in some instances, it
smaller communities) and rural (or intercity). was necessary to include moderate volume
The plan recommends policies and actions highways in order to make connections into
for these two components separately. and out of cities.
Urban strategy: Bicycle plans have re- Secondly, WisDOT has analyzed road
cently been developed for Wisconsins 14 conditions for bicycling on all County Trunk
metropolitan areas, as well as for several and State Trunk Highways. This analysis
smaller communities. The State Bicycle was based primarily on pavement width and
Transportation Plan calls for the implemen- volume of traffic, but also considered volume
tation of these local plans. It recommends of truck traffic, seasonal peaks in traffic, and
that, on arterial streets, bicycle accommoda- sight line limitation due to curves or hills.
tions (in the form of wide curb lanes, bicycle Individual county maps have been produced
lanes, or paved shoulders) be made in ac- with this information to help planners and
cordance with local plans, unless the cost or highway engineers in their consideration of
adverse impact of such accommodations is how to best accommodate bicycle use when
excessively disproportionate to expected use roadway reconstruction opportunities occur.
of the facilities. In addition, it recommends
strong consideration of bicycle accommoda- Implementation
tions on arterial streets in communities that
do not currently have bicycle plans. WisDOT is responsible for the
implementation of bicycle-related
Rural strategy: The plan calls for the improvements on the State Trunk Highway
development of a usable network of system and encourages safer practices
roadways and bikeways to link villages, through its education and enforcement
cities, major recreation areas, and other programs. Key to the implementation of this
travel destinations in Wisconsin. On plan is the development of a supportive
moderate and high volume roadways environment for bicycling in Wisconsin. A
(generally those with motor vehicle volumes comprehensive effort involving local
exceeding 1,000 per day), paved shoulders governments, counties and even the private
should be considered to help accommodate sector will be necessary to reach the goals
bicyclists. of this plan. However, this plan can only
recommend or suggest roles and policy
There are two components to the consider- strategies for those who will be implementing
ation of bicyclist accommodations on rural its various components.
roadways. First, the plan identifies a priorty
Implementation actions recommended by the
sytem of key bike route linkages between
plan can be grouped into the following eight
communities and major bicyclist destina-
categories: urban systems, intercity (rural)
tions. While most of these linkages are on
linkages, citizen involvement, funding, facili-
State Trunk Highways, County Trunks are
ties design, administrative, education and en-
included if they are part of an approved
forcement, and land use and development.
county bicycle plan. Improvement priorities
Wisconsin Bicycle Transportation Plan Summary September 1998♦ The most essential action necessary for tions and WisDOT. Guidance documents
the urban system is the implementation that describe and illustrate current and
of the completedmetropolitan area and best design practices should be updated
community bicycle plans. These plans and made available to communities and
include street-by-street recommendations counties to help in the development of
for bicycle accommodations. Additionally, bicycle facilities. WisDOT will update its
there should be strong consideration of Bicycle Planning Guidelines, expanding
bicyclists on all new and reconstructed it to incorporate more information and ex-
street projects within all communities. amples of bicycle facility design.
♦Similarly, recommendations for intercity ♦One key administrative action involves
linkages also call for the consideration the continued training of planning and
of bicyclists on all projects. To aid in that engineering professionals in the
consideration, two maps are provided: development of bicycle facilities. Another
one showing current bicycling conditions, calls for the due consideration of bicycling
and the other showing State Trunk in other key WisDOT planning efforts,
Highway priority corridors and key such as the State Highway Plan.
linkages.
♦Education and enforcement actions
♦The citizen involvement measures call include WisDOT working with
for the continued coordination of activities communities and law enforcement
between local and state bodies, and agencies to identify the offenses and
bicycle groups and advocates. One of errors of motorists and bicyclists that are
the most effective means of coordination leading to the most serious crashes.
is through advisory committees. These should be targeted for
improvededucation and enforcement
♦ Funding of bicycle accommodations is efforts. Although WisDOT provides model
most effectively done at the time a education and enforcement programs, it
roadway project is being implemented. will continue to rely on local
Accommodations added at this time implementation of these programs.
typically add only a small amount to
overall project costs. Other funding ♦Finally, land use and development
sources for separate facilities or for actions are centered around making
encouraging projects at the local level are bicycling trips more practical, through the
also important to the implementation of construction of clustered development
this plan and are expected to increase and new developments that are
significantly over the course of the contiguous to the existing built-up areas
recently enacted federal surface of communities. Mixed use development
transportation act - TEA 21. and neighborhood shopping districts are
also land use patterns that should be
♦The facilities design actions recom- pursued. Internal neighborhood
mended by this plan include the applica- connections, such as paths between cul
tion of bicyclist-compatible design prac- de sacs and within greenways, should
tices as provided in several good guid- also be considered in all new
ance and facility design standards docu- developments. These types of
ments available from national organiza- improvements also benefit pedestrians.
Wisconsin Bicycle Transportation Plan Summary September 1998Biking into the 21st Century
Bicycling in Wisconsin can be made better
and safer at a reasonable cost. There are
many methods and examples from other
states and communities to help in the
attainment of this plans goals. What has
been proposed in this plan is a combination
of actions that are right for Wisconsin. The
implementation of this plan relies on the
cooperation and participation of local and
state governments. Since it takes time to
develop a usable system of roadways and
bikeways to provide greater mobility and
access for bicyclists, results will be best
measured in the longer run. In any event,
today is an ideal time to set this plan into
action and to begin improving conditions for
bicycling into the 21st century.
For More Information
Contact:
Tom Huber
Wisconsin Department of Transportation
Bureau of Planning
Room 933
4802 Sheboygan Avenue
PO Box 7913
Madison, WI 53707-7913
608-267-7757
thuber@mail.state.wi.us
Official Comment Period Closes
October 14, 1998
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