May 2

The Sanibel Bicycle Club wishes to thank the Sanibel City Council and City Staff for their efforts over the past year in support of our common goal of improving the safety and infrastructure of Sanibel’s shared use path system. The Club, with over 290 members, is proud of its longstanding partnership with the City, and looks forward to working closely with the City over the next year to address the growing short-term and long-term issues facing the island’s path system.

Attached is the Sanibel Bicycle Club’s annual report to City Council, with recommendations for the Council’s consideration over the coming year. We hope it will also be useful to City staff as they develop 2007 budget proposals for Council consideration, and to the participants in the various island planning activities underway or planned that impact the path system. It has been a very active year for the Club’s involvement with the City and the island community, as our focus broadens to include all the users of the shared use path system.

Over the past five years, Sanibel has made substantial investments in its infrastructure. These improvements include a new community park, a new wing for the library, and a new fire station. The ten-year project to install sewers throughout Sanibel is nearing completion and construction of a new recreation center has now been approved and will soon begin.

The Club recommends that improvements to Sanibel’s 23-mile shared use path system should become the City’s top priority infrastructure investment over the next several years. In spite of the path system’s importance to Sanibel life, our treasured paths have been allowed to deteriorate, and are not up to the standards expected by the Sanibel community. Improvements to make the path system safer and more enjoyable need to be undertaken now. The recent vote by the residents of Sanibel to approve building a new recreation center should be viewed as an indication of the value residents place on recreation of all kinds on this island and their willingness to pay for these amenities.

We are encouraged by Council’s recent focus on the need for improvements in the shared use path system. The various planning efforts underway or anticipated, led by the City’s new Planning Director, also provide an opportunity for integrating path issues into a comprehensive planning process.

The leadership team of the Sanibel Bicycle Club sincerely appreciates the willingness of Council members, as well as city staff, to meet with us and give serious consideration to our concerns and ideas. We look forward to working closely with you and city staff in the coming year to address the many challenges facing the path system.

Armand Ball, Parks and Recreation Committee Chair

The Sanibel Bicycle Club, throughout its 12-year existence, has advocated for the improvement of the safety and infrastructure of Sanibel’s shared use path (SUP) system. In addition to advocating for path system improvements, the Club has contributed to the stewardship of the paths, investing hundreds of hours each year on activities such as identifying safety problems and suggesting solutions to the City, inventorying the repair needs of the paths, painting signs on the paths and crosswalks, cutting back vegetation that interferes with path safety, and picking up litter on the paths. The Club is proud of its partnership with the City and we are committed to continuing this partnership to further our common goals.

The City’s 23-mile shared use pathway system is one of the three crown jewels of Sanibel—along with our beaches and wildlife. The paths are probably the City’s most valued and valuable recreational infrastructure resource and a crucial component of the city’s transportation system, given our automobile transportation problems. The paths are also an important part of the quality of Sanibel life, allowing residents and visitors alike to appreciate the island’s natural environment, promoting a healthy lifestyle, creating a sense of easy accessibility to the island’s businesses, neighborhoods, and destinations, and vital to the economic health of the community. Simply put, they are an integral part of what makes Sanibel Sanibel.

However, the path infrastructure is in need of urgent attention. The City’s leaders need to recognize that there has been a substantial increase in path usage and the types of activities on the paths. In addition, the current path design requires more maintenance of the paths than they are receiving. Both of these developments have contributed to the growing safety concerns on the island’s path system. With the scheduled opening of the new bridge in mid-2007, and the anticipated increase in visitors to the island, there are likely to be more users of the path system, further exacerbating the current safety concerns.

Safety for pedestrians and cyclists is a growing problem in Lee County. According to a recent report by the County’s MPO, while Florida’s overall bike/pedestrian fatalities and injuries have declined by 14% over the past 8 years, Lee County (which includes Sanibel) is the only county in Florida whose rate has increased over this 8-year period—and an increase of 15%. Clearly, our County leaders also need to pay more attention to this very troubling trend.

The development of a comprehensive and visionary Master Plan is the critical first step in a long process, and we applaud the Council for approving and funding this Club-initiated proposal during the past year. Working with all the components of city government, as well as with its consultant, on this important project will be the top priority for the Club over the next 12 months.

· A complete, integrated, visionary plan for enhancing our existing path network that is well integrated, and in harmony with, Sanibel’s environment and our community.

· A plan for safety improvements, signage, appropriate path widths, amenities and maintenance processes.

· Proposals for extending the path network with additional paths and connectors.

· A plan for funding, emphasizing Federal, State and private foundation programs.

· A plan, and materials, for communicating the “Plan” to the community, along with its benefits and costs.

The lack of any data about our paths—usage, uses, users—has been a concern of the Club’s for several years. We believe it has hampered the ability of Council to make sound policy decisions about path-related issues. It has made it impossible to qualify for grant funds, since a quantitative measurement of need is a component in almost any grant process. The data collection and analysis component of the consultant’s scope of work is a critical part of the project. We encourage the Council to review this aspect of the consultant’s work over the coming year to ensure that it provides data you need for decision making purposes.

This Plan is not just a written product—it is also a process--an opportunity for the community to become involved in the enhancement of the path system. The process is as important as the product, since community buy-in to the plan is critical to its potential implementation. As Mayor Johnston stated in a recent article, “These partnerships give everyone a stake in working together to make these initiatives a reality, to the benefit of the whole community.” A visionary and comprehensive Master Plan is also essential if we are to ask donors and government agencies to contribute money to the Plan’s implementation. We look forward to being a part of this planning process and to the future implementation of the Plan.

We are encouraged by the various city planning and implementation activities underway or under consideration (particularly in the Periwinkle corridor) that should result in some needed improvements in the path system. We are delighted that the City is pursuing and/or has been awarded grants to augment its various planning efforts. These planning efforts give the City and the community an opportunity to think holistically about geographic areas of the island and our overall infrastructure systems. The Club believes that the SUP Comprehensive Master Planning process should be closely coordinated with these Planning Department efforts (e.g., Periwinkle Restoration Project, the EDA infrastructure grant for the Periwinkle Corridor, re-development proposals, and a possible DOT/Ding Darling “Gateway Community” alternative transportation grant).

We applaud the Council’s action last year to create a new transportation planner position in the Planning Department. We look forward to having the City view bicycles as an alternative mode of transportation that has the potential of addressing some of the traffic problems on the roads. The SUP Master Plan is an ideal project for the new Transportation Planner, and we look forward to the City’s hiring of this person in the near future.

In light of the existing safety problems on the current Periwinkle Path, we encourage the planners to pay particular attention to the numerous visibility issues for both path users and cars along the path between the Causeway and Tarpon Bay Road. It is important that the plantings that will begin this summer as part of the Periwinkle Restoration Project be done in a way that does not cause additional visibility problems on Periwinkle (both in the short term and when the plants are at full growth), and that the City put in place a routine maintenance system that keeps the paths safe from obstructions to both path users and drivers at all times. Existing visibility problems in this corridor should be addressed simultaneously.

The Club is excited about the new U.S. DOT Federal Transit Administration “Gateway Communities” grant application that has been developed jointly by Ding Darling, the City of Sanibel, and LeeTran. This is an opportunity for the City to do some inter-modal transportation planning, with the use of bikes and shared use paths as an integral part of an alterative transportation system. Biking on the island has been viewed primarily as a recreational activity as opposed to a vital part of our transportation network. This grant could allow Sanibel to do some important in-depth assessment of island and refuge carrying capacities, including the shared use path capacity.

This proposed planning grant, if awarded, would provide $1.5 million, with the opportunity to compete for DOT capital improvement funds to implement recommended solutions contained in the planning grant. With a design scope focused on a broad assessment of alternative transportation systems on the island, along with strong city leadership and authority, this grant (if it were funded) could be the beginning of the City’s ability to successfully compete for grant funds for alternative transportation infrastructure investments, including improvements and expansion of Sanibel’s shared use path system. This is of critical importance, as we look toward to future implementation of the just begun SUP Comprehensive Master Plan.

The Club looks forward to participating in the broad range of planning activities outlined above, in an effort to achieve our common goal of infrastructure and safety improvements in the island’s shared use path system.

For over a decade, there has been a recognition that one section of the Periwinkle Path ((the stretch from the Sanibel Steakhouse to Casa Ybel) has serious safety problems that necessitate an alternative path. Safety concerns have grown as road traffic along Periwinkle and usage of the paths has exploded. This 0.6 mile area of the path has 18 commercial driveways crossing the path, and is the most dangerous section on the island, with the Sanibel Police Department reporting in 2003 that almost half of all accidents on the island’s 23 mile path system occurred in this short 0.6 mile area. This means that a path user is almost 20 times more likely to have an accident on this section than on any other section of that length. The current situation poses a serious danger for Sanibel’s path users and drivers, and exposes the City to potential liability and litigation costs, which will be borne by the taxpayers.

The City studied this problem for several years and considered numerous options for addressing the safety concerns, taking into account environmental considerations, right of way ownership, cost, and feasibility. The City then developed the design for a half-mile alternative path that parallels Periwinkle along the Sanibel River behind the businesses on that section of Periwinkle.

Plans for the Periwinkle Bypass were finalized four years ago, approved by all relevant city departments (including Natural Resources), endorsed by the Parks and Recreation Committee, approved by the City Council twice in 2003 (including the authorization of eminent domain), and the City began negotiations with property owners in early 2004. Funds have been budgeted for both the acquisition of the easements and construction of the path in each of the last three years, including the 2005-6 budget approved by this Council. Over the past year, many members of the public (reflecting the community at large, not just members of the Bike Club) have urged the Council to take action to address this dangerous situation; have spoken in favor of the Perwinkle bypass proposal during public comment periods at meetings of City Council, Planning Commission, and Parks and Recreation Committee; as well as in letters to Council and to the editor of the local newspapers. The Board of the Committee of the Islands (COTI) recently recommended that the Council move forward to acquire the easements for the Periwinkle bypass.

In spite of all of this, the City is still debating the issue and none of the budgeted funds over the past 3 years have been spent for this purpose. Why?

The August 2004 Hurricane Charley resulted in the deferral of many city projects and plans, including the bypass path. If the hurricane had not intervened, construction of the Periwinkle Bypass path could be well underway. In the meantime, a new Council was elected in the spring of 2005, and the approval process started anew.

In August 2005, this Council instructed the City Attorney to update the 2003 appraisals for these properties and report back to Council. Finally, at the end of April 2006, the City received the updated appraisals. The current appraised value of these easements is considerably higher than the 2003 appraisals, which should not be surprising given that three years have passed and property values have increased significantly during that time. Delay almost always increases the cost of any project, whether it is a road, a bridge, or a recreation center. All of Sanibel’s recent infrastructure projects have suffered from the cost of delays. The increased cost of acquiring the easements should not be an argument for further delay—any further delay will just cost the City and its taxpayers even more money in the future.

The Club strongly recommends that the City move forward to acquire these easements now. The Club specifically urges the Council to adopt a resolution (similar to the 2003 resolution) authorizing the City Attorney to use “all means necessary” to obtain the easements.

Although the 2006 budget assumed $150,000 for easement acquisition, the City’s Capital Improvement Plan included $300,000 for construction of the bypass path in FY 2007, for a total of $450,000 for this project. In light of the long delay in receiving the appraisals, City negotiations to acquire these easements are unlikely to be completed in FY 2006; therefore, the Club recommends that the City manage the acquisition process to obligate funds over this two year period out of a total 2-year amount of $450,000. If most of the funds budgeted for construction have to be used for easement acquisition, then it means that the City will need to pursue grant funds to fund more of the construction of this path. Without possession of the rights-of-way, the City is not eligible to apply for grant funds, so acquisition is the first and most important investment that the City can make.

We are optimistic that, with a visionary Master Plan to be completed in 2006-07, the City would be able to compete successfully for Federal, State, or Foundation funds to build this unique path along a part of the Sanibel River. Although this alternative path needs to be constructed for safety reasons, the site chosen by the City has the benefit of enhancing the Sanibel experience for residents and visitors alike. Path users will be able to appreciate Sanibel’s natural environment in a way that promotes respect for the island’s sanctuary qualities, consistent with the Sanibel Vision.

The City’s current bypass plan, as presented in 2003, is to retain the existing Periwinkle path, but to direct the majority of path traffic onto the new alternative path through proper signage and public education. Although we think that path users will voluntarily choose to use the bypass path, it would be safer if the existing section of the path were closed. Therefore, the Club recommends that the City Council reconsider the 2003 city staff proposal not to close the existing path after the bypass path is completed, in order to determine if it is appropriate in light of safety concerns. Council may wish to consider suggestions we have heard from others in the community, such as making that existing section of the path open for walkers only. The City’s “dual path” proposal should not be used as a basis for Council members to vote against the bypass path. Rather, Council can make a policy decision to require the future closure of the existing path.

The Club is pleased that the City Council’s seven goals for the coming year (developed in its 2006-7 Goal-Setting Workshop on April 13^th)include “the development of alternative routes for shared use paths”. The Club urges Council to address this goal in the coming months so that action can begin in the near future on an alternative route for the “Periwinkle Bypass” area.

The Club has long advocated for the creation of some alternative path for this dangerous section of the Periwinkle Path, and the “Periwinkle bypass” is the only viable solution that the City has proposed after careful consideration of all options. Unless city staff have viable new options and are ready to present them for Council consideration in the near future, we believe that it is time for the Council to vote on the bypass proposal. As the Council has heard from many corners of the Sanibel community over this past year, citizens of the island expect this safety problem to be addressed by the Council before a fatality occurs.

The Club whole-heartedly agrees with the City Council, as discussed at its April 13^th goal-setting workshop, that there are immediate and short-term (e.g., within 60 days) low-cost improvements that should be made to improve safety on the paths until longer term solutions can be put in place.

The Club offers the following suggestions for short-term, low-cost improvements that the City could make now to improve the safety for path users as well as cars along the island’s path system.

The Public Works Department could enhance safety by instituting the following suggestions:

The Sanibel Police Department could enhance safety on the paths or for bikers and pedestrians on the roadways if they would implement the following suggestions:

1. Enforcement of the right-of-way for pedestrians and bikers at crosswalks needs to be a top priority. Navigating crosswalks has become increasingly difficult, as the majority of drivers do not yield to pedestrians and bikers. Until there is increased enforcement, the situation is likely to deteriorate even further. This problem is not unique to Sanibel, but the City can and should do something about it while people are on island.

2. Use of helmets by children under 16 years. The rental companies can give all the children under 16 a helmet to wear, but they cannot make them wear them. Some enforcement by the City could encourage greater compliance with this requirement. This is a state law.

3. Use of lights on bikes at night. It can be particularly dangerous to use the paths after dark. It is not unusual to see cyclists on the path (especially visitors to the island) biking back from the beach or from dinner after dark without lights. Public education about this requirement, along with enforcement action, is needed to reduce safety hazards for bikers, walkers, and cars.

4. Vehicles parking on path. Since Hurricane Charley, service vehicles, as well as cars, have been parking more frequently on the paths throughout the island. This is especially a problem on Middle Gulf and West Gulf, creating safety hazards for path users. Periodic ticketing for these violations could rectify this problem.

City Council could enhance safety on the path if it were to adopt an ordinance requiring the use of bells or other audible devises on bikes for warning path users of their presence. In 2004, the Parks and Recreation Committee recommended that the City require bikes to have bells, which the Club supported, but it was never considered by Council. This proposal needs to be reconsidered. In the meantime, the City could encourage bike rental companies to voluntarily install bells on the bikes they rent. The proper use of audible devises on the path system can improve safety and reduce accidents. Cyclists are required to warn others when passing.

The Club would be happy to work with the City on these and other short-term actions that can be taken now to make the paths safer.

One of the City Council’s goals for next year is to institute a major improvement in the city website. As the city staff undertakes this task, we would like to offer several suggestions for inclusion in that project:

Users of the path have the best pulse on what is happening every day on the 23-mile path system and could provide the City with valuable “real-time” information about hazards on the paths and roadways for pedestrians and bikers. The Lee County “Request for Action” reporting system on its website (http://lee-county.com/publicworks/oper7.htm) provides a form for citizens to fill out online. (See Attachment 1.) This reporting page is also a link on the Caloosa Riders Bike Club website, further broadening its availability. We recommend that a report form, similar to the Lee County form, be incorporated the City’s new website.

We would also suggest that the City consider going a step further than the Lee County “Request for Action” report, and provide an online opportunity for citizens to report on accidents or close calls. This kind of self-reporting is used in numerous communities. Attached is an example of this type of web-based report form from the Seattle area. (See Attachment 2.) This type of report can promote public awareness, provide the City with a wealth of information that could help it identify ongoing safety problems, and assist in the determination of effective solutions.

The Council has stated its intent to make City processes as transparent as possible and having access to city information and data is a key ingredient to transparency.

With the Police Department’s conversion to a new data management system in mid-May, crash data involving pedestrians and bicyclists can hopefully be made more accessible the public.

The city’s consultant for the SUP Master Plan, Sprinkle Consulting, could also provide input to the City on this website project.

The Sanibel Bicycle Club is proud of the improvements it has made in its Club website over the past year, and would welcome the opportunity to link any path-related sections of the new city website to our website. As we have grown, our website has become a vital part of our communication network with our members, as well as with the public at large. [See www.sanibelbicycleclub.org.]

The Club is concerned about the current lack of internal or external reporting or analysis by the City on path-related crashes or other crashes involving pedestrians and cyclists on island roads and right-of-ways. The last report that the Club is aware of is the Police Department’s report to City Council in 2003 during the debate on the Periwinkle Bypass path. On that occasion, the Police Chief stated that over half of the accidents in the past two years had occurred in the Periwinkle bypass area.

For information on Sanibel pedestrian and bike crashes, the Club has relied on reports produced by Lee County DOT. The County’s reporting system assumes that one party to the accident is a motor vehicle. The data collected includes the nature of the second party (bike or pedestrian) and which of the two parties was at fault. (See Attachment 3.)

According to County DOT officials, this is likely to reflect only a portion of the crashes occurring, since the only reports that are usually filed by the police are those on city roads or right-of-ways in which a car is involved and only those requiring medical action. If a crash occurred on a shared use path between two bikes, or a bike and a pedestrian, it is unlikely to be included in this report. Dan Moser, the Lee County Pedestrian and Bicycle Coordinator, estimates that actual crashes are at least double the reported level, and this is not counting the many minor mishaps and near misses that are never reported to the police. According to the West Coast “GhostCycle.org” experience with its self-reporting system in Seattle, only 34% of accidents were reported to the authorities.

We are hopeful that Sprinkle Consulting, as part of its work on the city’s SUP Master Plan, will propose a crash reporting system for the City. The Bike Club recommends that the current Lee County Ped/Bike Crash Report be used as a starting point, but be expanded. In addition to the data currently being reported, any police report involving a pedestrian/bike/or any other user of the paths should be included in the city’s tracking system. In addition, we would suggest the form be modified to include the following:

· Explain the cause of the crash, beyond which party was at fault (e.g., bike without lights at night); and

· Identify specific location where (in addition to the name of road ) the event occurred (e.g., on path near intersection).

A prerequisite for improving the safety on the path system is the collection, analysis, and dissemination of data about what is happening on the paths, as well as to cyclists on the roads. The Club is looking forward to the SUP consultant’s recommendations in this area.

Last year, the City budgeted $875,000 for path maintenance, improvements and planning in FY 2006 and included the same amount in the outyear plan for the 2007 budget.

To date, only a small amount of these FY 2006 budgeted funds have been obligated for the intended projects; however, it is not unusual for the bulk of the work on path systems to occur in the last half of the year. As the City goes through the FY 2007 budget formulation process, we would suggest that Council look beyond the total dollar amount appropriated to what level of services or products can be purchased with that funding level, and also track the actual spending on the path system priorities that it funded in the previous year. In the final analysis, what matters is what is actually produced with the funds appropriated.

The Club is concerned that the 5-year Capital Improvement Plan does not include realistic inflation/cost increase factors in its estimates of out year costs. As a result, each year the Council thinks it is buying a particular project with that amount, only to be informed midway through the year that the bids for the work are 50% - 100% greater than budgeted; therefore, only half the project can be done, the project must be stretched out over several more years, or the project is simply scrapped. The cost of materials, such as asphalt, has increased at record rates. According to the New Jersey Transportation Department’s data (posted on their website), the cost of asphalt has steadily increased since early 2002, and is now more than double was it was four years ago. Given that oil prices are expected to continue to rise for the foreseeable future, the trend is unlikely to change in the coming years. These increased costs for asphalt directly affect the Public Works CIP budget and need to be factored into the out years. The Club believes that the shared use path projects that are contained in the FY 2006 5-year CIP should be fully funded and on the schedule reflected in the 2006 plan. This will mean that the dollar amounts needed to implement this plan are much greater than contained in either this year’s budget or next. We would suggest that the City staff be asked to price out the 5-year CIP using the asphalt price index developed by the industry for our area as its inflation factor.

With respect to specific projects in last year’s budget, the City has announced a delay in the Tarpon Bay road and path project ($100,000 for the paths) due to DEP permitting issues. It is important that funding for this project, and any others delayed before the end of this fiscal year, be carried forward into FY 2007, at the updated cost. The Director of Public Works has estimated that the cost increases for projects on the City’s Capital Improvement Plan could add 50-100% more in 2007; thus, we anticipate that the path-related 2007 budget will need to increase substantially next year.

As stated in the Periwinkle Bypass section of this report, the Club recommends that the City move forward expeditiously on negotiating with the property owners for the easements. The costs are likely to fall in both FY 2006 and FY 2007. The 2-year budgeted amount of $450,000 for both the acquisition of the easements and construction, should be treated as one pot, with the majority of these funds now going to easement. The City should pursue grant funds to make up for this shortfall in construction funds once the right-of-ways are acquired.

The City is to be commended for its successful grant application for a 2-year Federal Economic Development grant of $314,000 for infrastructure projects (primarily path system and drainage) along the Periwinkle Corridor as an adjunct to the Periwinkle Restoration Project. We are hopeful that this is the beginning of increased grant funds for path-related projects.

As the City begins to receive grant funds for path issues, the Club strongly recommends that any new funding source be used to increase the overall funding level of the path system, i.e., to supplement, not supplant the funds that the City currently includes in its Capital Improvement Plan for the path system.

In August 2005, the Club, for the first time in its 12-year history, committed itself to raising funds for improving the path system on Sanibel. The first priority is to contribute up to $25,000 to the City’s Comprehensive Shared-Use Planning Initiative, to be completed with consultant assistance. The Club established the Trails in Motion Fund in the Southwest Florida Community Foundation to facilitate tax deductible donations and broaden the awareness of Sanibel’s path system.

While the City is responsible for the paths as an important part of Sanibel’s infrastructure, the Club is happy to bring community involvement to this effort. We appreciate the City’s willingness to partner with the Club in these efforts.

The Club urges the City to work with the County to ensure that the exits from the new Causeway bridges onto the island are integrated into Sanibel’s path system in a fashion that enhances safety. Having a connected trail system between Sanibel and the County has the potential of reducing car traffic to and around Sanibel, with proper planning and facilitation. The Club is supportive of Lee County’s proposal to create safety shoulders in Captiva along Captiva Road, which would allow for enhanced and safer connections between our two islands. Being part of the County’s planning effort provides Sanibel with an opportunity to export its bike-friendly community philosophy to others in Lee County, and could also enhance Sanibel’s chances for receiving grant funds for its path system and implementation of its upcoming new Master Plan.

Sanibel’s 23-mile path system was a visionary idea of the city’s founding fathers and mothers. We are hopeful that the City’s current leaders, in partnership with the citizens of this island, will be as visionary in protecting this valuable resource for our children and grandchildren.

The Club has a long tradition of working closely with the City on path-related matters, and we look forward to working with you over the coming year, especially as part of our partnership with the City on the SUP Master Plan development process. Thank you for your consideration of our views. Please feel free to contact us if you have any questions.


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