The City of Charlotte
TRANSPORTATION
Action Plan
2008 Annual Report
I
n May of 2006, the Charlotte City Council adopted the Transportation Action
Plan (TAP) — the City’s first comprehensive, multi-modal, long-range transportation plan. The TAP includes the City’s policies, projects and programs that
will be necessary over the next 25 years to accommodate projected growth and
reduce existing transportation deficiencies.
When adopted, the TAP called for a 25-year investment of $3.57 billion in 2006 dollars to build and maintain the local thoroughfares,
streets, connectivity projects, traffic signal systems, pedestrian pathways and bicycle facilities. When inflated and adjusted to include
all the farm-to-market road projects in the Charlotte sphere of influence, the total cost of the TAP is estimated at $7.26 billion.
Increases in the various types of transportation capacity defined in
the TAP, in conjunction with increases in freeway and expressway
capacities, and expanded bus and rapid transit services, will be
necessary as Charlotte—one of the nation’s largest cities—continues to grow in
the next 25 years.
I am pleased to present the 2008 Annual Report for the Transportation Action
Plan. This report describes the achievements and the challenges that occurred
in 2008, our third year of implementing the goals, strategies and projects recommended in the TAP. I believe an annual report is important not just to highlight
our successes, but also to identify possible changes in strategies or investments
that we should consider in the upcoming years.
Council and staff have been implementing the TAP’s policies and programs since
its adoption. In the years ahead, City Council will continue to make difficult decisions about transportation priorities, revenues and growth management so that
Charlotte can continue to be one of the most livable and economically attractive
large cities in the nation.
Curt Walton,
City Manager
January 2009
Transportation Action Plan
2008 Annual Report
T
he Transportation Action Plan (TAP) describes the goals, objectives and policies that
are necessary to make Charlotte one of the premier cities in the nation for providing
land use and transportation choices. A full copy of the Transportation Action Plan is
available at http://cdot.charmeck.org.
To achieve the City’s goals, the TAP recommends a variety of investments in transportation,
presently estimated at $7.26 billion for construction and maintenance expenditures by 2030.
This level of investment—together with concurrent investments in State-maintained freeways and expressways and in new rapid transit lines—will be necessary to accommodate the
City’s ongoing growth, while protecting the high quality of life in Charlotte.
Each year’s Annual Report describes the progress and challenges in implementing the
TAP. These annual reviews enable City Council and staff to identify obstacles that must be
overcome and determine changes in the resources or actions necessary to achieve the City’s
transportation-related goals.
Among the highlights in 2008:
LYNX Blue Line light rail service opened with an average daily ridership this year of more
than 15,000, far exceeding its first-year ridership estimates.
Charlotte voters passed a transportation bond measure in excess of $160 million for
roadway, signalization, connectivity, traffic calming, bicycle and sidewalk projects.
The Committee of 21 and the 21st Century Transportation Committee made recommendations regarding state and local transportation funding needs and revenue sources.
The TAP was honored by the Federal Highway Administration and by the North Carolina
American Planning Association as a model plan for its integrated transportation and
land use strategies.
The annual report is organized according to the five goals of the TAP (shown at the top of
each of the following pages). For each of the goals, the 2008 Annual Report summarizes
the achievements of the past year, current activities, and the issues and challenges affecting
implementation of the TAP.
TAP GOAL
1
Continue implementation of the
Centers, Corridors and Wedges Strategy.
Achievements
City Council adopted the TAP in May
2006. The TAP underscores the importance of the Centers, Corridors and
Wedges growth management strategy
as a way to guide growth toward places
where appropriate levels of transportation infrastructure, multimodal capacity
and connectivity can be provided.
The Centers, Corridors and Wedges
Map was adopted as part of the TAP. This
map (Figure 1 in the TAP Policy Document)
will enable the City to monitor whether
we are meeting the Centers, Corridors
and Wedges land use targets. (The map
is displayed on the inside back cover of this
report.)
In compliance with TAP Policies 1.1.2
– 1.1.4, the City monitors the amount of
residential and non-residential development occurring in Centers, Corridors and
Wedges.
Thanksgiving marked the one-year anniversary of LYNX Blue Line light rail service. The average weekday ridership of
15,098 far exceeded the 9,100 estimated
riders per day.
Current Activities
Monthly rezoning review reports indicate whether each rezoning request is
located in a Center, Corridor or Wedge.
Development approvals are now tracked
to ensure we are meeting land use targets.
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TRANSPORTATION ACTION PLAN
2008 ANNUAL REPORT
Mechanisms to monitor growth have
been developed by staff to implement
Policies 1.1.2-1.1.4, which relate to the TAP
land use targets. The monitoring information is used by CDOT staff during monthly
rezoning reviews, and is incorporated in
the Transportation Focus Area Plan and in
the TAP Annual Report.
The public review process on the update of Centers, Corridors and Wedges is
underway. Three public workshops, held
in October, and a web-based survey have
given citizens opportunities to provide
comments. An advisory group is reviewing the comments from the workshops
and web survey and are recommending
changes to the document.
TAP GOAL
1
Issues and Challenges
► The concept of the Centers, Corridors
and Wedges growth framework has been
discussed in Charlotte for over a decade.
The TAP affirmed the value of this concept
and prompted the Planning Department
to begin the update of this framework
which will further support the transition of Centers, Corridors and Wedges
from concept to implementation. This
transition will result in the need to revise
some plans and policies to bring them
into alignment with Centers, Corridors
and Wedges.
► Adopted land use targets help monitor implementation of the Centers, Corridors and Wedges growth management
framework. Policies 1.1.2 and 1.1.3 state
that the City will ensure at least 40% of
► The City’s integrated transportation
and land use strategy encourages a
greater percentage of our households
be located within ¼ mile of schools,
parks, shopping and transit service.
Meeting this target can reduce vehicle
miles of travel by shortening many vehicle trips and by making it possible for
some people to walk, ride bicycles or take
transit to more destinations. However,
the latest analysis (Table B) shows that
the trends are in the wrong direction on
three of the four categories when compared to the 2004 baseline. In order to
reverse these trends, the City will need to
new households, 70% of new multi-family units, 75% of new office development
and 75% of new employment will be located within the centers and corridors.
► In FY 07, The City met the office and employment targets (Table A), but did not
meet the multi-family target.
TABLE A
FY 08 Annual Measurement:
Development Locating Within
Centers and Corridors
TARGET
ACTUAL
Total New Households
40%
53.8%
New Multi-Family Households
70%
67.7%
Total New Office Development
75%
98.7%
New Employment
75%
94.8%
TAP Policy 1.1.2
TABLE B
Percentage of City Population Living Within 1/4 Mile of
Amenities and Services
Year
Shopping
Schools
Parks
Transit*
2004
45.6%
13.0%
16.9%
63.5%
2006
51.4%
11.8%
16.1%
61.2%
2007
52.5%
13.0%
15.7%
54.0%
2008
52.8%
12.2%
15.7%
57.0%
* Local Transit Route
more actively implement the Centers, Corridors and Wedges growth management
framework through future area plans and
rezoning reviews.
TRANSPORTATION ACTION PLAN
2008 ANNUAL REPORT
3
TAP GOAL
2
Prioritize, design, construct and maintain convenient and
efficient transportation facilities to improve safety and
neighborhood livability, foster economic development,
promote transportation choices and meet land use objectives.
Achievements
By adopting and now beginning to implement the TAP and Urban Street Design
Guidelines, the City Council demonstrated its commitment to creating a multimodal transportation system with benefits for motorists, pedestrians, bicyclists,
transit riders, employers or business owners, and neighborhood residents.
The City adopted the Bicycle Plan to create a more bicycle-friendly Charlotte.
In 2008, CDOT developed and implemented an awareness campaign to support the installation of new Pedestrian
Beacon Systems.
The intersection of Scott, Kenilworth, Romany
and Harding was retrofitted with a left-turn lane,
pedestrian-crossing islands, stamped crosswalks
and countdown timers to provide a
safer intersection for all travelers.
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TRANSPORTATION ACTION PLAN
2008 ANNUAL REPORT
During FY 2008 CDOT designed and/or
implemented:
14.3 miles of road projects
6 intersection projects
62 obsolete traffic signal controllers
replaced
136 traffic signals in signal systems
retimed
21.1 miles of sidewalk projects
12.3 miles of bicycle projects
CATS received the Pre-eminent Star
award from the Federal Transit Administration for outstanding innovation and
best practices in public transit, and the
Federal Highway Administration’s 2008
National Award of Excellence in the design of intermodal facilities for the I-485
Station Design.
The Lynx Blue Line began operations
November 26, 2007, and is the first of
five planned rapid transit corridors.
TAP GOAL
2
Current Activities
In order to create more “complete streets,”
the City is continuing to apply the Urban
Street Design Guidelines on all Citysponsored transportation projects.
The City’s Traffic Impact Study Guidelines
are being converted to Transportation
Impact Study Guidelines to reflect a
multi-modal transportation approach.
During the 2008-2010 bond cycles, CDOT
expects to plan, design and/or construct the following:
A citywide Pedestrian Plan is being developed by staff and will be presented
for City Council’s consideration in 2009.
7.9 miles of road projects
10 intersection projects
75 obsolete traffic signal controllers
replaced per year
200 traffic signals retimed per year
29 miles of sidewalk projects
10 miles of bicycle projects per year
An I-485 parking expansion will begin
construction in early 2009 to assist with
overcrowding at the I-485 LYNX Station
park and ride lot.
Figure 2 (see back cover) provides
Park and Ride expansions are under design for the Mallard Creek and Huntersville Gateway Park & Ride lots.
details regarding road and intersection projects advanced since the
Four additional Light Rail Vehicles were
ordered to counter crowding during the
peak period.
TAP was adopted.
Issues and Challenges
► The TAP relies heavily on the implementation of the Urban Street Design
Guidelines. The USDG will provide more
connectivity, route choices and better
streets for all users. Implementing the
USDG through private sector development depends on changing the subdivision and zoning ordinances. City staff will
be defining ordinance changes necessary
to implement the USDG.
The Urban
Street Design
Guidelines
will enable all
neighborhoods
to have treelined streets
that enhance
livability.
TRANSPORTATION ACTION PLAN
2008 ANNUAL REPORT
5
TAP GOAL
3
Collaborate with local and regional partners on land use,
transportation and air quality to enhance environmental
quality and promote long-term regional sustainability.
Achievements
The City actively fosters regional transportation, air quality and sustainability
objectives through involvement in the
Mecklenburg Union Metropolitan Planning Organization (MUMPO). City staff
not only participate actively in MUMPO
planning activities, but are responsible
for most technical activities.
CATS continued to advance the preliminary engineering phase of the LYNX
Blue Line Extension (Northeast Corridor)
and the Purple Line (North Corridor) in
cooperation with federal, state and local
partners.
An Economic Impact Study for Streetcar was completed in 2008 and is being
reviewed by staff. The study explores
the potential for economic development/redevelopment along the streetcar corridor, as well as potential funding
strategies. Findings of the study, and an
updated cost estimate, will be presented
to the Streetcar Advisory Committee and
City Council in early 2009.
Current Activities
City, State and regional planning organizations within the Charlotte metropolitan
area are completing a study to determine
if any major highways should be considered for High Occupancy Vehicle (HOV),
High Occupancy Toll (HOT) or other
types of managed lanes.
Schools in
neighborhoods
on a connected
street system,
such as Shamrock
Gardens,
provide more
opportunities for
children to walk
or bike to school.
6
In 2008, City and MUMPO staff compiled
lists of roadway, transit and alternate
mode transportation projects for possible inclusion in the 2035 Long-Range
Transportation Plan.
City and County staff worked with over
110 private companies to implement
“Clean Air Works!” – a series of activities
intended to reduce air
pollutant emissions
during ozone season.
City and Charlotte Mecklenburg Schools
staff continue to work on school siting and design changes that could be
implemented to encourage walking and
bicycling to school.
TRANSPORTATION ACTION PLAN
2008 ANNUAL REPORT
Mecklenburg County hired a Safe Routes
to School Coordinator in 2008. City staff
are collaborating with the new Coordinator to create more walkable school environments.
TAP GOAL
3
Issues and Challenges
► While City transportation projects are constructed to meet the City transportation
and land use objectives, NCDOT project
designs often do not reflect Charlotte’s
urban vision and multi-modal requirements. For example, the City is working
with NCDOT to modify the Mallard Creek
Extension design to create a more acceptable project.
► The lack of a regional transportation planning agency for the entire air quality
non-attainment area will continue to require ad hoc arrangements to accomplish
basic regional transportation planning
and air quality functions.
► CDOT worked with regional partners and
federal agencies to try to help the N.C.
Division of Air Quality (DAQ) develop a
strategy to meet the 8-hour ozone air
quality standard by 2010. In November,
the U.S. EPA indicated that the State Implementation Plan (SIP) proposed by N.C.
DAQ would not be acceptable. The region may not be able to adopt updates
to the LRTP or the TIP in 2009.
Mecklenburg County is
part of an eight-county
ozone non-attainment
area. Air quality
challenges continue
to impact our region.
TRANSPORTATION ACTION PLAN
2008 ANNUAL REPORT
7
TAP GOAL
4
Communicate land use and transportation objectives
and services to key stakeholders.
Achievements
Through the adoption of the TAP, the City
has clearly defined its comprehensive
set of transportation-related strategies.
The TAP Policy Document and Technical
Document can be found on the internet
at http://cdot.charmeck.org.
The City’s transportation priorities are
clearly identified in the 5-year Capital
Investment Program and 10-year Capital
Needs Assessment.
CDOT sponsors an annual survey through
UNCC to assess the community’s opinions
on transportation issues and concerns.
In an effort to better communicate the
City’s land use and transportation objectives, the City developed a Growth Strategy
Communication Plan in 2008.
Current Activities
The City is tracking land development
permits monthly and annually to monitor the Centers, Corridors and Wedges
growth management targets. This information is available to
elected officials, staff and
citizens to determine how
well we are fulfilling our
growth management vision and meeting specific
land use targets.
The City is re-launching the www.charlottefuture.com website to convey information to citizens regarding the City’s
growth and transportation strategies.
The City will produce a video, similar to
the focus area videos, that provides a
comprehensive overview of the City’s
Growth Strategy, including an explanation of Charlotte’s integrated land use
and transportation linkage.
Working with a stakeholder group, the City
is currently updating its Centers, Corridors and Wedges growth strategy.
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TRANSPORTATION ACTION PLAN
2008 ANNUAL REPORT
TAP GOAL
4
Issues and Challenges
► Integrating land use and transportation
choices over time requires a long-term
vision and continued communication
with residents and stakeholders, and
monthly or quarterly reports to the City
Council and Planning Commission.
► Communicating this vision clearly and
concisely can be difficult and may require
the City to develop new tools (such as a
video and other visuals) that enable our
citizens to better understand our transportation challenges.
Continued growth in the Charlotte region will see increasing travel on the
City’s roadways. Continued implementation and funding of the TAP will
help Charlotte address the City’s transportation challenges.
TRANSPORTATION ACTION PLAN
2008 ANNUAL REPORT
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TAP GOAL
5
Seek financial resources, external grants and
funding partnerships necessary to implement
transportation programs and services.
Achievements
When City Council adopted the TAP in
2006, they acknowledged that the TAP
recommended spending $3.57 billion
($7.26 billion when adjusted for inflation)
to build, operate and maintain locallyfunded transportation infrastructure
through 2030.
The City
Boulevard
Extension
project brings
much needed
capacity to
Northeast
Charlotte.
To begin implementing the TAP, City
Council voted in 2006 to provide more
financial capacity for bond measures
(including transportation) in 2006, 2008
and 2010, as well as an annual $4.3 million increase for street resurfacing.
In November of 2006 and 2008, Charlotte
residents passed bond measures that included a total of almost $240 million for
roadway, signalization, connectivity and
bicycle and sidewalk projects.
NCDOT awarded CATS additional CMAQ
funds to purchase expansion and replacement buses and increased the State funding share in the LYNX Blue Line project to
purchase additional light rail vehicles.
Current Activities
In 2008, the Committee of 21 was appointed by the Charlotte Chamber, City of
Charlotte and Mecklenburg County, and
tasked with identifying long-term funding options for building and maintaining
road projects throughout Mecklenburg
County.
After convening in May, the Committee
of 21 reviewed a wide array of transportation funding and governance options,
and is expected to make recommendations to the City and County in the Spring
of 2009.
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TRANSPORTATION ACTION PLAN
2008 ANNUAL REPORT
The Committee of 21 is expected to recommend an additional vehicle registration fee to be used for roadway maintenance and an additional half-cent
sales tax to be used for construction of
state and local roadways in Mecklenburg
County. The Committee also made recommendations regarding tolls and a future Vehicle Miles of Travel fee.
The City and County are expected to consider pursuing the Committee of 21’s
recommendations through upcoming
legislative sessions.
TAP GOAL
5
Issues and Challenges
► Federal and state gas tax collections
continue to diminish as a viable transportation funding source due to more
fuel-efficient vehicles and, in 2008, decreases in vehicle miles of travel. In addition, reduced gas tax revenues decreases
Powell Bill funding for street maintenance.
New funding sources, such as those proposed by the 21st Century Transportation
Committee and the Committee of 21, will
need to be considered.
► Half-cent sales tax revenues are down
significantly as the local and national
recession forces the public to reduce
spending. If this trend continues, transit
service reductions, and a potential delay
in the completion of the 2030 Corridor
System Plan, may be necessary.
► Without a dedicated transportation
funding source, at levels consistent
with the TAP, Charlotte will struggle to
keep pace with continued growth in population, employment and travel.
► NCDOT continues to experience funding shortfalls, causing numerous state
road projects to be delayed further.
NCDOT’s inability to advance these projects is impacting Charlotte’s ability to accommodate its growth.
► If the half-cent sales tax for non-transit transportation projects is advanced
as recommended by the Committee of
21, the City and Towns will need to ensure that projects funded by the sales tax
are implemented in a timely and costefficient manner.
Charlotte does not have adequate funding for roads
to keep pace with growth.
TRANSPORTATION ACTION PLAN
2008 ANNUAL REPORT
11
Conclusion
T
he TAP Annual Report provides an opportunity each year for residents, elected officials and staff to reflect on our transportation achievements, discuss
our transportation challenges and identify refined or new ways to meet our
transportation goals.
Charlotte’s City Council took a crucial first step in addressing the City’s transportation
challenges in 2006 by adopting the 25-year Transportation Action Plan. The TAP
calls for a series of policies, projects and programs that are necessary to accommodate ongoing growth, while protecting our quality of life.
This report summarizes the achievements, current activities and challenges the City
is now facing as it continues to implement the TAP. There have been many achievements since 2006 and a large variety of work is programmed for the year ahead, but
there are also significant challenges to meeting our transportation goals.
Charlotte’s TAP and the City’s commitment to quality transportation design and integrating land use and transportation choices received national and statewide recognition this year through the following awards:
• Federal Highway Administration “Transportation Planning Excellence Award” for
the TAP;
• North Carolina American Planning Association “Marvin Collins Award” for the TAP,
USDG and the Dilworth Area Plan;
• Federal Transit Administration “Pre-eminent Star Award” for best practices in public transit; and
• Federal Highway Administration “Award of Excellence” for I-485 Station Design.
These awards recognize Charlotte as a national and statewide leader in defining and
achieving a comprehensive transportation and land use vision.
Looking ahead to 2009, there are three key challenges facing the City Council:
1. The first will be to select permanent and reliable funding sources for transportation.
2. The second, ongoing challenge will be to ensure that Charlotte grows in a manner consistent with the Centers, Corridors and Wedges growth management
framework.
3. A third challenge continues to be the need to update city codes and ordinances
to successfully implement the TAP and the Urban Street Design Guidelines.
The Centers, Corridors and Wedges Map (adopted as part of the
Transportation Action Plan) helps provide the framework for
land use and transportation investment decisons in Charlotte.
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Charlotte Department of Transportation
Planning & Design - GIS
February 18, 2009
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