CITY OF JACKSONVILLE 2030 MOBILITY PLAN STUDY UPDATE GOALS, OBJECTIVES, AND PERFORMANCE MEASURES PREPARED FOR: CITY OF JACKSONVILLE

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1 CITY OF JACKSONVILLE 2030 MOBILITY PLAN STUDY UPDATE GOALS, OBJECTIVES, AND PERFORMANCE MEASURES PREPARED FOR: CITY OF JACKSONVILLE 55 Railroad Row White River Junction, VT SUBMITTED BY: RSG

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3 GOALS, OBJECTIVES, AND PERFORMANCE MEASURES PREPARED FOR: CITY OF JACKSONVILLE CONTENTS 1.0 INTRODUCTION EXISTING GOALS MOBILITY PLAN GOALS Multimodal Safety Multimodal Mobility Equitable Quality of Life Environmental Stewardship Economic Competitiveness OBJECTIVES Goal 1 Multimodal Safety... 6 Objective 1.1 Vehicular Related Safety... 6 Objective 1.2 Pedestrian and Cyclist Safety Goal 2 Multimodal Mobility... 6 Objective 2.1 Vehicular Mobility... 6 Objective 2.2 Freight Mobility... 7 Objective 2.3 Pedestrian and Cyclist Mobility Goal 3 Equitable Quality of Life... 7 Objective 3.1 Context Sensitive Street Design Policy... 7 Objective 3.2 Mobility Friendly Communities... 7 Objective 3.3 Health Benefits Goal 4 Environmental Sustainability... 8 i

4 Objective 4.1 Person Trip Throughput Goal 5 Economic Competitiveness... 8 Objective 5.1 Access to Freight Generators... 8 Objective 5.2 Improvement of Neighborhood Street Design PERFORMANCE MEASURES... 9 List of Figures FIGURE 1: GOAL, OBJECTIVE, PERFORMANCE MEASURE EXAMPLE... 1 List of Tables TABLE 1: GOALS FROM EXISTING PLANS... 4 TABLE 2: GOAL, OBJECTIVE, PERFORMANCE MEASURE(S), AND DATA SOURCE ii March 20, 2017

5 1.0 INTRODUCTION In developing this update of the 2030 Mobility Plan, it is important for the City of Jacksonville to state the goals it intends to accomplish over the life of the Plan. It is these goals that set the direction and explain to the public how the City will address the critical issue of mobility of people and goods, particularly in the context of City owned streets. Goals are high level statements of direction, while objectives are specific and measurable so that the City can track progress on achievements. This is accomplished through monitoring of performance measures, as described in the example in Figure 1 FIGURE 1: GOAL, OBJECTIVE, PERFORMANCE MEASURE EXAMPLE Three sources are used in developing the goal statements. The first is the 2030 Mobility Plan (adopted May 2011). The second is Florida DOT s 2060 Florida Transportation Plan, which sets statewide goals and performance measures. The third is the current North Florida Transportation Planning Organization s (NFTPO) Long Range Transportation Plan (LRTP), Path Forward NFTPO is the designated Metropolitan Planning Organization (MPO) for the Jacksonville urbanized area. Federal law gives the NFTPO the responsibility for adopting an LRTP that looks out at least twenty years into the future and spells out the region s priorities for investing in the multimodal transportation system. They must also adopt a Transportation Improvement Program that lists all the projects that will be funded by programs of the Federal Highway Administration and Federal Transit Administration over a five-year period. 1

6 City of Jacksonville Goals, Objectives, and Performance Measures CITY OF JACKSONVILLE 2030 MOBILITY PLAN STUDY UPDATE 2.0 EXISTING GOALS In this section, we will outline the goals as set forth by the 2060 Florida Transportation Plan and those developed by the NFTPO in their last LRTP. Understanding these goals is important because the ability for the State and the NFTPO to meet their goals and objectives is directly tied to the goals and objectives used by the local governments/agencies in their planning processes. The objectives of the existing 2030 Mobility Plan are also documented. Taken together, these provide a starting point for developing the goals and objectives for this update. The 2060 Florida Transportation Plan began with statements of policy and statewide transportation goals. The goals are as follows: Goal 1: A safer and more secure transportation system for residents, businesses, and visitors This goal also explicitly acknowledges the importance the network plays in security of the state through use of the system for emergency evacuation. Goal 2: Effective maintenance and operation of Florida s transportation facilities and services The FDOT has an established commitment to maintain and efficiently operate the State Highway System before expanding the system, so that it protects the public s investment for the future. Goal 3: Increased mobility and connectivity for people and freight and efficient operation of Florida s transportation system Ensuring smooth and efficient transfers between modes of transportation. Relieving bottlenecks and congestion that cause delays. Increasing the reliability of travel time between regions. Increasing the number of high-speed, high-capacity transportation options available for people and freight trips between regions, states, and nations. Increasing the efficiency of SIS facilities and services using appropriate technologies and operational strategies. Goal 4: Enhanced economic competitiveness and economic diversification Helps increase the efficiency and competitiveness of Florida s existing businesses. Assists in the diversification of the economy towards high-wage jobs and promotes growth in key targeted industries. Supports development of economic clusters and activity centers of statewide significance. Facilitates commerce of goods, services, and visitors to existing and new domestic and international markets. Expands economic opportunities in Rural Areas of Critical Economic Concern. Goal 5: Promote Livable Communities The decisions and investments made by the FDOT will enhance each particular community s characteristics, values, and needs. 2 March 20, 2017

7 Goal 6: Responsible environmental stewardship Minimize the impacts of the transportation system on the environment. The FDOT is committed to working with other state agencies and its local and regional partners to ensure that the transportation system treads lightly on the built and natural environment. All but Goal 2 have applicability to this Mobility Plan. The NFTPO s Path Forward 2040 includes goal statements in these areas: Economic Competitiveness Livability Safety Mobility and Accessibility Equity in Decision Making System Preservation The first four goal areas will have some applicability to the Mobility Plan. As the City of Jacksonville seeks to improve mobility for people and freight, it will do so in an environment that addresses the need to improve safety and livability, while providing a foundation for economic competitiveness. The City of Jacksonville 2030 Mobility Plan states the intention to take a holistic approach to mobility planning [that] consists of location-based, design-based, and land use policies to promote future development that will integrate and support multi-modal transportation options. 1 In that context, the Plan includes five objectives: Support a variety of modes Reduce vehicle-miles travelled (VMT) Reduce greenhouse gas (GHG) emissions Promote compact and interconnected land use Improve health and quality of life for Jacksonville residents A key strategy is to develop mobility-friendly communities 2 through a policy approach to urban design that creates a land use pattern with mixed uses, intensity and density, and multimodal network connectivity. This will allow residents to meet some of their daily needs through walking and biking trips on safe, quality infrastructure. Table 1 shows that there is a great deal of congruence among the goals of these existing plans. While system preservation is important to the state and region, it does not apply to the Mobility Plan. The goal areas of safety, mobility, economic competitiveness, livability, and environmental stewardship will all be retained in this Mobility Plan update Mobility Plan, City of Jacksonville, May 2011, p.7 2 The concept of mobility-friendly community was developed as part of the previously adopted mobility plan. 3

8 City of Jacksonville Goals, Objectives, and Performance Measures CITY OF JACKSONVILLE 2030 MOBILITY PLAN STUDY UPDATE TABLE 1: GOALS FROM EXISTING PLANS GOAL AREA APPPLICABLE TO MOBILITY PLAN UPDATE FDOT 2060 FTP NFTPO 2040 LRTP 2030 MOBILITY PLAN Safety X System Preservation X X Mobility and Accessibility Economic Competitiveness Livability Environmental Stewardship X *X means the goal statement area did not appear in the referenced plan, or is not applicable to the update. 4 March 20, 2017

9 3.0 MOBILITY PLAN GOALS The following goal statements articulate the broad intent of this 2030 Mobility Plan Study Update: 3.1 MULTIMODAL SAFETY The City of Jacksonville will ensure that all users of the transportation system can travel safely regardless of mode. 3.2 MULTIMODAL MOBILITY The City of Jacksonville will provide its residents and businesses with reliable mobility for people and goods by all modes EQUITABLE QUALITY OF LIFE The City of Jacksonville will provide an excellent quality of life for its residents by developing and maintaining mobility-friendly communities that are healthy and connected places. 3.4 ENVIRONMENTAL STEWARDSHIP The City of Jacksonville will develop and maintain a transportation system that focusses on increasing person trip throughput without increasing the VMT. 3.5 ECONOMIC COMPETITIVENESS The City of Jacksonville will support a vibrant business sector with efficient transportation services that promote the neighborhood economy as well as the distribution of services and goods. 3 Reliability on the highway system is affected by such factors as congestion, incidents, weather, special events, work zones, and traffic control devices. For this study the transit mobility will be addressed independently by JTA, while the freight mobility will be addressed in the next full update of the Mobility Plan. 5

10 City of Jacksonville Goals, Objectives, and Performance Measures CITY OF JACKSONVILLE 2030 MOBILITY PLAN STUDY UPDATE 4.0 OBJECTIVES Each of the goal statements are supported by a set of objectives. The objectives are explicit statements that answer the question What actions will the City take to achieve this goal? In order to be transparent to decision makers and the public, these objectives are crafted to be SMART. Specific Measurable Agreed upon Realistic Timebound By meeting these criteria, the objectives will drive actions and form the foundation for tracking progress. Because the Mobility Plan will have competing needs and limited resources, the City may need to consider trade-offs in its implementation. As a result of tracking progress on each objective, adjustments in investment strategies may be made over time, potentially shifting resources where achievement is lagging. 4.1 GOAL 1 MULTIMODAL SAFETY OBJECTIVE 1.1 VEHICULAR RELATED SAFETY Reduce the number of fatalities and serious injuries from motor vehicle crashes from baseline (average of ) by 2030 by focusing on locations with a Crash Ratio that is more than 25% above the average Note: These performance measures are adopted in the FHWA Final Rule on Safety Performance Management. Note: Averaging five years of crash data is standard procedure to generate a statistically reliable value. Note: Crash ratio is used by FDOT to compare actual crash rate to the statewide average for similar facility types (e.g., four-lane urban arterial). OBJECTIVE 1.2 PEDESTRIAN AND CYCLIST SAFETY Reduce the number of pedestrian and bicyclist fatalities and serious injuries from motor vehicle crashes from baseline (average of ) by 2030 Note: This performance measure is adopted in the FHWA Final Rule on Safety Performance Management. Pedestrian and bicyclist safety has been identified as a critical issue in the City of Jacksonville. Note: Averaging five years of crash data is standard procedure to generate a statistically reliable value. 4.2 GOAL 2 MULTIMODAL MOBILITY OBJECTIVE 2.1 VEHICULAR MOBILITY Achieve by 2020 and maintain through 2030 a minimum of volume/capacity (v/c) ratio on arterial streets and collector roads, defined for each Mobility Zone. 6 March 20, 2017

11 Note: The City may define a different v/c objective for each Mobility Zone, based on predominant land use and function in the regional transportation network. Note: V/c ratio can be affected by adding capacity, improving operations, and Active Travel Demand Management that may shift demand to alternate modes, times of day, or routes. OBJECTIVE 2.2 FREIGHT MOBILITY Achieve by 2030 reliable travel time for commercial vehicles involved in urban goods movement, defined by the Travel Time Index in each Mobility Zone. Note: Reliable travel time has been shown to be more important for freight delivery than absolute travel time, as there are expectations of meeting narrow delivery windows. OBJECTIVE 2.3 PEDESTRIAN AND CYCLIST MOBILITY Improve pedestrian and bicycle mobility by 2030 by enhancing network connectivity through construction of sidewalks, bicycle facilities, and multiuse paths among key destinations and in cooperation with transit routes. Note: It is well documented that people make decisions to use non-motorized modes of travel based on the intensity of land use, trip length, and perceived comfort, safety, and convenience of the trip. Connected facilities are an important strategy. 4.3 GOAL 3 EQUITABLE QUALITY OF LIFE OBJECTIVE 3.1 CONTEXT SENSITIVE STREET DESIGN POLICY Implement the Context Sensitive Street policy in design plans for programmed street projects through Note: The 2030 Mobility Plan tasks the Departments of Planning and Development and Public Works with developing a Context Sensitive Streets policy. Once in place, this will guide the inclusion of multimodal improvements in project design. OBJECTIVE 3.2 MOBILITY FRIENDLY COMMUNITIES Support the creation of Mobility Friendly Communities through appropriate land use policies; showcase initial success. Note: Mobility Friendly Communities was identified in the 2030 Mobility Plan as a key strategy to meet City goals for managing land use and providing a positive quality of life for its residents. Provision of a connected network of multimodal transportation facilities is a critical element. OBJECTIVE 3.3 HEALTH BENEFITS Measure and document the increase in mobility options, through the implementation of ADA compliance sidewalks, sidewalks, and bicycle paths through the life of the Plan. Note: National attention has been focused on the linkage between transportation and public health. The lack of physical activity is linked to the lack of mobility options due to a lack of sidewalks, ADA compliance of sidewalks, bike paths, etc. 7

12 City of Jacksonville Goals, Objectives, and Performance Measures CITY OF JACKSONVILLE 2030 MOBILITY PLAN STUDY UPDATE 4.4 GOAL 4 ENVIRONMENTAL SUSTAINABILITY OBJECTIVE 4.1 PERSON TRIP THROUGHPUT Implement transportation projects which will increase person trip throughput without increasing the VMT. 4.5 GOAL 5 ECONOMIC COMPETITIVENESS OBJECTIVE 5.1 ACCESS TO FREIGHT GENERATORS Improve efficient access to freight generating locations by adding capacity as necessary. Note: These freight generating locations may include JAX Port, intermodal terminals, warehouse/distribution centers, manufacturing facilities. OBJECTIVE 5.2 IMPROVEMENT OF NEIGHBORHOOD STREET DESIGN Implementation of context sensitive projects in the neighborhoods to promote multimodal access and stimulate the local economy. 8 March 20, 2017

13 5.0 PERFORMANCE MEASURES In this section, we will discuss the concept of performance measures. Performance measures are used to track and assess progress toward meeting goals and objectives. Other transportation agencies at the state and local levels have tried many approaches to applying the techniques of performance measurement over recent years. The most common approach had been to look at the agency performance and outputs. Doing so would have answered questions like: What percentage of capital projects were delivered on time? What was the monthly total of maintenance paving by lane-mile? What was the mean response time of maintenance crews to reported traffic signal failure? While these measures may have helped these agency s management, it did not address the outcomes of agency activities in the perspective of transportation system users. An outcome-oriented system of performance management asks different questions: What percentage of buses arrived at key stops on time per the transit schedule? What was the impact of the safety improvement projects constructed in 2014 on the number of fatalities and serious injuries in the affected locations/corridors? What was the effect on mean travel time in a corridor where traffic-adaptive signal control was installed? Moving Ahead for Progress in the 21 st Century (MAP-21), the federal transportation authorization signed into law in 2012, created a new requirement for States and MPOs. These agencies would now be required to institute Performance Based Planning and Programming (PBPP). MAP-21 also included seven national goals to which PBPP would be applied. These include safety, pavement and bridge infrastructure sufficiency, congestion, travel time reliability, freight movement, environmental mitigation, and project delivery. The application of PBPP to these goals has been defined through a series of rulemakings. At the time of this report, only the Safety Performance Management rule has become final. The Infrastructure and System Performance Management rules remain in draft form, with public comment periods having been completed. None of these are required for the City of Jacksonville, however since the City of Jacksonville is part of the NFTPO, it is important to realize which requirements exists for the NFTPO. The law and implementing rules require not only that these elements of transportation system performance be measured on a regular basis, but that each State and its constituent MPOs set targets for each measure. They must then report on their progress toward achieving the targets. For example, the Safety Performance Management rule requires five performance measures: Number of people killed in motor vehicle crashes on all public roads Number of people seriously injured in motor vehicle crashes on all public roads Rate of fatalities in motor vehicle crashes on all public roads Rate of serious injuries in motor vehicle crashes on all public roads Number of people killed and seriously injured in pedestrian and cyclist crashes 9

14 City of Jacksonville Goals, Objectives, and Performance Measures CITY OF JACKSONVILLE 2030 MOBILITY PLAN STUDY UPDATE On January 18, 2017, the remaining Final Rules for performance management were published. The Pavement and Bridge Condition rule includes six performance measures: Percent lanes-miles of the Interstate System in Good condition Percent lanes-miles of the Interstate System in Poor condition Percent lane-miles of the remainder of the National Highway System in Good condition Percent lane-miles of the remainder of the National Highway System in Poor condition Percent of National Highway System bridges (by deck area) classified in Good condition Percent of National Highway System bridges (by deck area) classified in Poor condition The System Performance Management rule includes seven performance measures: Percent person-miles of travel (PMT) on the Interstate Highway System that are reliable Percent person-miles of travel (PMT) on the remainder of the National Highway System that are reliable Truck travel time reliability on the Interstate Highway System Percent change in CO2 tailpipe emissions on the National Highway System compared to 2017 base year Annual hours of peak hour excessive delay per capita on the NHS in urban areas* Percent of non-sov travel on the NHS in urban areas* Total emissions reductions from CMAQ-funded projects in non-attainment areas * These measures apply only to Urbanized Areas that are air quality non-attainment or maintenance, with population>1 million for the first reporting period; then to all non-attainment TMAs States will develop targets for each of these measures, and report them to FHWA. The safety measures will be incorporated in the state s Strategic Highway Safety Plan, and the infrastructure measures in the state s Asset Management Plan. MPOs are given the choice of either committing to support progress on State targets through project programming choices, or setting their own targets. As each performance management rule is finalized, States have one year to adopt targets, after which MPOs have 180 days to make their decisions. States and MPOs will also have the opportunity to put in place performance measures that go beyond the national goals, but are relevant to them. For example, the national infrastructure measures apply only to the National Highway System; an MPO may choose to report on other Federal aid eligible roadways for which they are responsible. Data can be an issue for PBPP. A significant amount of system performance data must be collected, analyzed, and archived. FHWA tried in the performance management rules to specify data sources that already exist: State crash record systems FHWA Highway Performance Monitoring System (HPMS) National Performance Management Research Data Set (NPMRDS) CMAQ Public Access System 10 March 20, 2017

15 What Does This Mean for the City of Jacksonville? Federal law does not require cities to implement PBPP. As such, the use of performance measures and setting of targets will be imposed on Florida DOT and the NFTPO. Because Jacksonville is the primary urban center of the region, and accounts for a large share of personal and commercial travel, decisions made by the City in collaboration with FDOT and NFTPO will have an impact on their ability to make significant progress on adopted performance targets. In addition, performance-based planning is becoming accepted as a best practice approach to transportation planning and project programming. By including an outcome-oriented user perspective in planning decisions, and measuring and reporting on system performance on a regular basis, the public and local elected officials can better understand project choices. While it is not necessary to set targets, setting them and reporting them on the City website can demonstrate where progress is being made. If decision makers see that performance is lagging in an area, they may choose to modify the allocation of project funds. By the time the next full update of the Mobility Plan is underway, all the Federal performance measures should be in place, and the FDOT and NFTPO targets adopted. Table 2 shows each of the goals, the supporting objectives, the applicable performance measures, and the data source for each metric. TABLE 2: GOAL, OBJECTIVE, PERFORMANCE MEASURE(S), AND DATA SOURCE GOAL OBJECTIVE PERFORMANCE MEASURE(S) DATA SOURCE 1.1 Vehicle related safety Number of fatalities and serious injuries, crash ratio Crash record database 1.0 Multimodal Safety 1.2 Pedestrian and cyclist safety Number of pedestrian and cyclist fatalities, serious injuries Crash record database 2.1 Vehicle mobility v/c ratio Calculated 2.0 Multimodal Mobility 2.2 Freight mobility Travel time reliability National Performance Management Research Data Set 2.3 Pedestrian and cyclist mobility Pedestrian and cyclist network connectivity GIS mapping, sidewalk//bike lane/trail inventory 11

16 City of Jacksonville Goals, Objectives, and Performance Measures CITY OF JACKSONVILLE 2030 MOBILITY PLAN STUDY UPDATE GOAL OBJECTIVE PERFORMANCE MEASURE(S) DATA SOURCE 3.1 Context Sensitive Street design policy Policy development; number of projects with CSS design elements City records, design review 3.0 Equitable Quality of 3.2 Mobility Friendly Communities Land use policy adoption, number of communities City land use records Life Increase ADA compliant 3.3 Health benefits sidewalks and implementation of sidewalks and bicycle Improvements to the nonmotorized network paths 4.0 Environmental Stewardship 4.1 Increasing person throughput without an increase in VMT Increasing HOV and alternative modes of transportation Number of HOV, transit, pedestrian, and/or bicyclist projects implemented 5.1 Access to freight generators v/c ratio on access roads Calculated 5.0 Economic Competitiveness 5.2 Improve neighborhood economies through street design Apply context sensitive street design Comparative land use analysis (increase in number of small businesses) 12 March 20, 2017

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