2018 June Meeting Packet

Bicycle/Pedestrian Subcommittee Tuesday, June 19, 2018 5:00 PM – 6:00 PM Large Conference Room – Dover City Hall AGENDA Agenda Minutes of March, April & May, 2018 New Items 1. Delaware Bicycle Council Innovation Grant a. Fox Hall West ‐ Mallard Pond Park Link b. Other suggestions 2. City of Dover Pedestrian Plan, February 2015: need to update 3. City of Dover Bicycle Plan, March 2015: need to update Old Items: 1. Dover Treasure Hunt 2. Construction Projects (DelDOT) 3. Bike Month Events 4. By‐Laws revision Announcements Adjournment THE AGENDA ITEMS AS LISTED MAY NOT BE CONSIDERED IN SEQUENCE. PURSUANT TO 29 DEL. C. §10004(E)(2), THIS AGENDA IS SUBJECT TO CHANGE TO INCLUDE THE ADDITION OR THE DELETION OF ITEMS, INCLUDING EXECUTIVE SESSIONS, WHICH ARISE AT THE TIME OF THE MEETING.

Bicycle Pedestrian Sub‐Committee Dover City Hall Large Conference Room Dover, DE March 6, 2018 *** DRAFT *** Members Present: Others Present: Jim Hutchison‐Chair, Chris Asay, Jayce Lesniewski, Maria Andaya, Carolyn Courtney, Margery Dave Moses, Gerry Pennington, Andy Siegel Cyr, Eddie Diaz, John Fiori, Kate Layton, Councilmen Lewis, Donna Mitchell CALLED TO ORDER: Meeting opened at 5:07 P.M. AGENDA The agenda was presented for review. Mr. Asay would like to remove the Snow Removal item. With that change the agenda was approved without objection. APPROVAL MEETING MINUTES The February meeting minutes were presented for acceptance. With no changes, the motion was made and carried to accept as presented. OLD ITEMS Dover Treasure Hunt Ms. Courtney gave a brief update on the Dover Treasure Hunt. She stated they have been meeting with local groups and businesses to make this work. Our first meeting with a larger body was successful. We had an interactive meeting in which people could share on the topic and how we could get it done. “What does a treasure hunt mean to them, What would they like to see” and “What should we avoid, any dates to avoid like Amish Bike Tour” were all topics discussed. Feedback was good and we’ll be meeting again monthly. Continued updates will be shared with the subcommittee as it moved forward. Construction Projects Mr. Fiori reported that there was not too much to update since last month. Brecknock trail is currently under construction (over the bridge trail piece). The Senator Bikeway is moving along. DelDOT and the city have met over the delineators and it was agreed DelDOT will maintain them. But members of the committee need to understand it will be as DelDOT can add to their schedule. Mr. Hutchison added the very reasonable position is that when we have a major snowfall, DelDOT’s major priority is getting snow off the roads, they may not get to the delineators for sometime, such as not until the weather clears. I did not hear anything that made me feel they would not get it done. A brief discussion took place about this part of the project. Mr. Fiori noted we have also discussed the project along Kenton Road. From Rt 8 to Chestnut Grove Road. There is some discussion on this multiuse path. This project is scheduled for the near future. Mr. Asay pressed that he wants the path from Rt 8 up to Maple Dale. The chair noted that we had agreed to Fox Hall not necessarily all the up to Maple Dale. Mr. Fiori did not know the budget, or project schedule. Century Engineering the consultant for this project, in response to Mrs. Mitchell’s question. Mrs. Mitchell inquired about funding for maintenance and future upkeep on these projects. Stating she understands DelDOT is agreeing to fund many of these projects, but Council needs to know what our costs as the city will be faced with upholding in the future.

Ms. Asay asked to add another construction update on the Capital Station project. The chair asked Mr. Asay not to go too long. Mr. Asay then asked Mr. Diaz to give an update on the Capital Station project. Mr. Diaz noted it a project at 15 N DuPont Hwy. It is underway check record review with city and state agencies. One of the components was to ask for a 10 foot wide multiuse plan on frontage of Division Street and DuPont Highway frontage. A crosswalk over DuPont Highway is not in the plan. That will have to be arranged at a later date. The developer will be required to install that path. Mrs. Mitchell as if right‐a‐way of the substation property would be needed? Mr. Diaz yes. Mrs. Mitchell asked is this down the road or near future? Mr. Diaz noted this is down the road. Mr. Moses asked to have to come back to the committee at another time. Mr. Asay feels a feasibility study may be needed to do this piece. There is potential for money from MPO and Delaware Bike Council, I feel it’s important that we get moving on this. Mr. Moses wants to see this on the April agenda. This is a piece that needs to be built that would connect to the existing Capital City Trail. That Mr. Asay would like to see a feasibility study completed. Mrs. Cyr asked if for the next meeting we could have a map so we could figure out which portion is which. Mr. Diaz agreed. Bike Fixit Station Mrs. Layton reported still working out the details on this. We are hoping it will be done and installed by Bike to Work day. This is being paid for by a Restoring Central Dover Grant. Bike Month Events Mr. Siegel will lead a ride in from Schutte Park if roadway is clear of construction projects. We will solicit for donations as we have done the past. Bike to Work day is May 16. Mr. Fiori added the state wide Legislators Ride on May 9. Routes from New Castle and Sussex Counties has been planned. A flyer has been shared on the bike/pedestrian web page. Ms. Courtney reported the Ride of Silence is scheduled for that same evening, May 16. The Bike Month banner will go up at the end of April. Dover Duathlon Ms. Courtney noted we have a fair number of participants already. We could use more sponsors, so if the subcommittee members could solicit there contacts it would be helpful. If you are not a participant, please come out to help volunteer. Dover High School ROTC will be sending students to help with the run course, and Dover Police, Delaware State Police and Delaware State Fire Police will be assisting with the bike course. Mr. Moses noted Laura Strutz will return again this year to run the transition area. He added that we could still use about 8 volunteers for transition. Ms. Courtney added that all permits are now in place both the State of Delaware and Dover Police permits. NEW BUSINESS Bicycle Friendly Report Card The chair noted having an offline meeting may be better, I am wary of calling it a subcommittee per Chris’ request. Ms. Courtney noted we just got that award, we have a very full plate right now. Her recommendation is to review and possibly review this over the summer and digest a bit more of in the fall. The Chair noted we could chose a month to talk about this. Mr. Asay noted we should do the next bike plan now as we will need a new one in 2020. We need to prepare the update now. The usual process takes more than one meeting. We need to start this whole process now, per Mr. Asay. He felt we needed a revision as certain things have been accomplished and new things have shown up that needs to be addressed. Mrs. Latyon noted the MPO may be willing to help, but the city should send a formal request to the MPO for assisting. Ms. County noted this will have to go thru Safety Transportation & Advisory and Council not directly from this committee. Mr. Asay admitted we do not have to have this done by a certain date, but it is important to keep it current for priority project lists.

TIMELINE Mr. Asay presented a timeline and Ms. Courtney found a few things to update and revise. But overall it looked good with a few edits. Mr. Moses asked the purpose? Mr. Asay noted to be on a website to see what our accomplishments have been. ANNOUNCEMENTS No announcements. ADJOURNMENT With no further business the meeting adjourned at 6:20 PM without objection.

Dover Bicycle and Pedestrian Subcommittee History Timeline Spring 2012 At Delaware Bike Summit, Dover City Planning Director, Ann Marie Townsend, declares intention for Dover to become a Bike Friendly Community January 22, 2013 Call for interested parties – general meeting held Bicyclists & Pedestrians in Dover, join us to share your ideas and thoughts on how to make Dover a more bicycle & pedestrian friendly place. In our efforts, to make Dover a place where people want to live & play ‐ the City of Dover is forming a Bicycle & Pedestrian Sub‐ Committee. This is your chance to get involved by sharing your ideas and knowledge to make Dover a more friendly bicycle/pedestrian community for all to enjoy. April 9, 2013 First meeting of Bike/Ped Subcommittee; Chairman appointed: Jim Hutchison; First task chosen: Bike Friendly Community Application Agreed meetings would last one hour – per Councilman Hutchison as he was chair of the SA&T at that time. May 2013 First Bike‐to‐Work Day event in Dover April 23 – July 2, 2013 Prepared & submitted BFC Application (3 months) November 2013 League of American Bicyclists gives Dover “Honorable Mention” (application for Bike Friendly Community turned down) February 4 – Oct 7, 2014 Completed Pedestrian Plan (7 months) Feb 4, ‘14 – March 3, ‘15 Completed Bike Plan (13 months) May 2015 First Ride of Silence event (idea originally from Councilman Slavin) August 2015 Concept Design funded for Senator Bikeway This was not our group, we helped by supporting the project, the city did NOT fund this project October 2015 Partnership formed with Capital School District

January 2016 Engineering Design for Senator Bikeway, Phase I, is funded (construction planned for FY 2017) This was not our group, we helped by supporting the project April 2016 Bike Rack Contest winner is declared (DHS drafting class) April 2016 First Dover Duathlon event April 2016 Banner denoting May as Bike Month funded in partnership with DE Bike Council Spring 2017 First bicycle education classes in Capitol School District Spring 2017 First Bicycle Rodeo held with Capital School District April 2017 Application for Walk‐Friendly Community turned down May 2017 First signature Dover bike rack installed, at public library November 2017 Awarded Bronze‐level Bike Friendly Community by League of American Bicyclists We are missing a few things, can you help fill in the gaps?? Donation from DE Bike Council partners for Inner Faith Mission (helmets, lights, etc) Bike Rack Contest Advertised twice – the second time then a winner was awarded Dover Elks bike rodeos – 1st with Anthony, 2nd with Carolyn. Summer of 2016 and 2017 Fun Rides planned – John & Carolyn

Bicycle Pedestrian Sub‐Committee Dover City Hall Large Conference Room Dover, DE April 3, 2018 *** DRAFT *** Members Present: Others Present: Jim Hutchison, Fran Riddle, Chris Asay, Dave Carolyn Courtney, Eddie Diaz, John Fiori, Moses, Jayce Lesniwski Anthony Aglio, John Hermes, Jeff Niezgoda, Reed McMillian, Maria Andaya Chandra Jackson CALLED TO ORDER: Meeting opened at 5 P.M. AGENDA The agenda was presented for approval. Without objection it was approved as presented. APPROVAL MEETING MINUTES The March minutes were tabled as they were not available for today’s meeting. NEW ITEMS Open Streets Program Ms. Jackson gave a brief explanation of Open Streets and the variety of activities to getting people out including a bike rodeo. We are really excited about having these options and the activities. Noting they were looking at partners to get involved. We are looking to host 6 of these this year. We are looking into education such as safe cycling. We are trying to get a healthy aspect, getting people moving without realizing they are exercising. A number of things are going on and partners. We want to find sustainable funding for next year as year. The whole concept is a healthy lifestyle program. Ms. Courtney added Mrs. Cyr had invited Ms. Jackson today as she saw the tie into this program and the Dover Treasure Hunt walking event that is being planned. This is a family friendly events for kids and adults. Mrs. Riddle noted Wesley is getting involved as they are doing a 5k run/walk and also a community garden. This is really a seamless event. Mr. Hutchison noted this is great and will certainly help our walk friendly initiatives, noting it would be nice if attendees biked to this event. In response, Ms. Jackson noted the locations for each of the 6 events will be shifted in various locations around downtown Dover. We have the dates but not all areas picked out just yet. Mr. Fiori reached out to the committee for volunteers to help with the bike rodeo portion, we could use 2 or more people would be great. If you can help, just email him. Duathlon The chair asked to move the Duathlon up on the agenda as Mr. Moses needs to leave early. Ms. Courtney noted registration has stalled and we really need to get more participants. We need 60 registrants to make this a viable program for Parks & Recreation. She asked the committee members to promote the event with their circles, workout places, etc. as they had been promoting with emails, Facebook, PSA’s. Mr. Moses feels if the city is concerned about the future of this event. I am willing to step in and take it over. He understood he would be completely in charge. He feels he can grow the event. The mechanics area set up was discussed, he noted Laura Strutz and Betsey Tootill for volunteers for transition and needs a few more. Basic discussion on course monitors and volunteers. Mr. Pennington would reach out to some of his Air Force contacts to see if he can get some help. Mr. Moses also wants to change the location should he take over the event.

Ms. Courtney we tried really hard to pick a date that did not have much conflict however Fordham Brewery and TriSports are now doing an event on this same date. Dover Treasure Hunt Mr. Riddle noted this dovetails well with Open Streets. The idea is get people up and walking around the city discovering the treasures of Dover with themes, cultural, historical, environmental, etc. We thought this was different enough from Open Streets that we are confident this will be another event to get people up and moving. We have a date even, mark your calendars now for July 20, 2019. We picked this date on purpose to ensure we have many partners and this gives us time to line everything up. Not much goes on in the dead of summer, so we thought this date would be good for giving folks something to do. Construction Projects Mr. Niezgoda shared four projects on his list. The West Street Trail connection started to for actual construction. We ran into a slight snag with Chesapeake Utilities, we can to an agreement on a temporary fence that is meets Homeland Security requirements. This is a 68 day contract from the Dart facility to North Street. This should go pretty smoothly no road closures are expected. The North Street trail resurfacing contract. Trail to along North Street out to Schutte Park. We do keep hearing about long term maintenance and up keep. This is our first attempt at fixing this pathway that is about 20 years old now. The plans are more refined, we can get this designed and out the door in a much shorter time period. We want to spend our money in construction not design. The entire trail from the rail road track heading west to Schutte Park will be resurfaced with the exception of one little piece (up the hill) due to property ownership / easement issues. The next project is North Street Scape project. North Street will be shut down a little longer while we finish this project. The retaining wall next to the cemetery is done. They are working one block at a time but it will take a sometime. This has been a great partnership with the City of Dover electric department. It is looking nice and really needed to be done. I understand the traffic headache, I face it myself. Brecknock Park we are working on finishing the bridge of the little stream crossing this will finish the Capital City Trail loop for being off road. The pedestrian/bridge will connect to the Brecknock Park trail. It will be a little wider than what was there and it should be done by end of April possibly May. The bridge that was there was ready for replacement. Traffic will be shifted during construction. If this part of highway is eventually widened, this bridge may need to be moved slightly but we have a few years before this happens. Saulsbury Road pathway will be resurfaced in May and then Forest Avenue in front of Greentree Shopping Center. We anticipate getting this done by the end of summer. Based discussion took place on starting ending. There are some other road projects going on that impact these projects. Mr. Moses asked about the Senator Bikeway from Mifflin to Saulsbury Rd. The concrete will be pulled out for asphalt on the south side? Will that be closer to the road? Mr. Hermes is trying to keep this from getting closer to the road, there are some utility poles, etc. This is really a future plan and we have not completed focused on these section at this time. Mr. Diaz noted the AARP sign project noted the “trail coming soon” signs. I have suggested when those projects are finished we have a trail opening event. Mr. Niezgoda noted please coordinate with our Public Affairs (CR McLoed) department to plan. Also, the trail signs will be kept and resurfaced for future use. Mr. Aglio noted the final design on the Senator Bikeway which currently now does not go up Fulton completely. With conversation with the city we have agreed to maintenance of the delineators, etc. Mr. Hermes reviewed the current direction and concept signage. With discussion from the group, the recommendation of moving the pathway Fulton

Street to go up Cecil Street was made. Mr. Asay noted we need to ensure we have a route to get downtown from Silver Lake. Mr. Siegel noted there is the existing trail that leaves the park, going along Park Drive will give this route option for those travelers. It was noted it is much safer to cross the highway at White Oak Road rather than North Little Creek Road. Discussion on using alleyways for the eastern portion of the trail getting over to Silver Lake took place. It was generally agreed that this alley way is used now by pedestrian and cars. But all will need to pay attention for cars/cyclists, etc. The project with recommended changes will be presented to Council Committee as a Whole on April 24 with the comments from this group included. Members of this committee were encouraged to attend in support. Mrs. Riddle noted Wesley was not completely happy about the trail going down Fulton, they may be more receptive to having the trail on Cecil instead. Mr. Niezgoda noted the timing on this project is moving a little slower due to acquisition. We still think this will be all wrapped up by the end of summer. The actual work will begin next spring verses at the beginning of winter. The funeral home folks have received this project well. Mr. Asay asked for time to review. Mr. Hutchison noted to send all comments to Ms. Courtney by end of the week so that they can be incorporated into the presentation to council. Bike Month Events Mr. Siegel noted the route he will lead will start at the former Dover High School as it did last year due to the construction projects on North Street. Ms. Courtney asked Mr. Asay to reach out to Good News Food to solicit a donation for the breakfast supply. Mr. Seigel noted he would reach out to Georgia Boys for a donation again also. Ms. Courtney noted due to losing Kate Layton the Bike Fit Station project did not move along as planned. We are still working to get this done, however it will not be ready for Bike to Work day. We will go back to the front of the Library as well have the past several years. She has invited the Mayor and city council members. Along with Kent County EMS cyclist patrol and Dover PD bicycle patrol. The Ride of Silence will be held that same night with the same route as previous years. Departing Silver Lake at 7 pm and returning to the same location. NEW BUSINESS Capital Station Review The chair deferred this until next month due to the absence of Mrs. Cyr and Mrs. Mitchel as they had asked for the presentation. Mr. Diaz will give the presentation in May. ANNOUNCEMENTS Mr. Fiori noted another bike rodeo at North Dover on Friday, April 13. Ms. Courtney noted she can’t help due to the Duathlon but anyone else that can help should just come on over between 8 – 12. Mr. Asay noted the Walkable/Bikeable Summit on May 3. ADJOURNMENT With no further business the meeting adjourned at 6:25 PM without objection.

Bicycle Pedestrian Sub‐Committee Dover City Hall Large Conference Room Dover, DE May 8, 2018 *** DRAFT *** Members Present: Others Present: Chris Asay, Jayce Lesniewski, Dave Moses, Gerry Carolyn Courtney, Eddie Diaz, John Fiori, Pennington, Fran Riddle, Andy Siegel Margie Cyr CALLED TO ORDER: Meeting opened at 5:04 P.M. AGENDA The agenda was presented for review. Ms. Courtney asked to remove the meeting minutes from April they are not ready for today’s meeting. With that change the agenda was accepted without objection. NEW ITEMS Private Development & Senator Bikeway Mr. Diaz gave a brief overview of the Capital Station development and Senator Bikeway tie‐in. (Presentation attached). Why are private developments are required to build multiuse pathway? This was started by DelDOT in 2017, as part of their state level project approvals. This prompted changes in what I show you today and well Dover made their own changes so that we have a similar policy when it was needed. Latest route of the Senator Bikeway, route runs east to west and how do we cross over RT13 to head further east. The Capital Station project was reviewed. Discussion on what is going into the new shopping center. This does not include south west corner property at King Highway and Rt13. The Chinese restaurant still needs to come down. The Wells Fargo and Parole building will be staying. Mr. Asay questioned why the bank does not have make changes? Mr. Diaz noted with there is not enough right‐a‐way in front of the bank, they are not installing the 10’ wide pathway due to property frontage that is available. They are not changing the location of number of entrances since they are not involved with the new project coming. The Wells Fargo parking lot does not change. Mr. Diaz reviewed the remaining pieces of the project and frontage issues noting where the gaps are. Three major ones, White Oak Road where paving site is not being developed, the Capital Station Project and the N. Little Creek project about development of this site, to encourage redevelopment DelDOT agreed not require intersection changes here. And the third gap is the city own substation. Gaps were demonstrated in the slides. At Dupont and Kings Highway, here the issue is the Payday site is not being developed. To get to the bikeable shoulder on the South side of White Oak, one would need to do three crosswalks while the more direct route would be to go straight across. It would take serious public action for this to be fixed. We would need to address this another way. Mr. Siegel noted this should be fine, but we need to be sure we can get them to the existing crosswalks. Mr. Lesniewski asked if the Lidl still coming? Mr. Diaz replied that it is not moving forward at this point, they have withdrawn their application. In review of the last site, we are really not going to see any development in the future and the utility pole along this area would be extremely costly to move. Each pole could cost close to a million dollars to move so they are not going anywhere. Discussion took place about the various right‐of‐ways and how we could get the pathway built filling in these gaps. Mr. Diaz was thanked for his time and presentation.

By‐Laws Review Ms. Cyr shared that Ms. Courtney came to Mr. Hutchsion and her regarding a revision to the by‐laws. My response was, if we are going to look, lets look at them as whole as they are 5 years old now. My question to Mr. Hutchsion was to see if a smaller group could work on them rather than this body as a whole. With brief discussion it was noted Mr. Lesniewski offered to assist in the project. Ms. Courtney will coordinate calendars to move this forward. We will add to next months agenda to see where we are in the process. OLD ITEMS Dover Treasure Hunt Mrs. Riddle shared the update we are moving forward with a date of July 20, 2019. We are still in early stages but we are moving along nicely. The next meeting is May 24 at the Library at 3 pm. We plan on having monthly meetings for the smaller work groups and over all meetings to coordinate the smaller group activities. Construction Projects Mr. Asay asked about the workshop on the RT10 project? Mr. Fiori did not have an update for this meeting. Bike Fixit Station Ms. Courtney reported city staff was meeting to discuss the concrete pad and exact location at the library. It is still coming but not in time for Bike to Work Day. Bike Month Events Mr. Siegel continues his plan to ride in from Dover High School (former site). Donations were being solicited for the breakfast. Mr. Fiori noted DelDOT had a group of riders planning to come and they would have their tent set up with Bike Month t‐shirts for participants. Mr. Siegel has sent out notices to all the city employees including the library and police station. Mrs. Cyr asked for a reminder so they be sure to have a door open for us. Ms. Courtney reported the Ride of Silence is scheduled for that same evening, May 16. We do have police escort scheduled as typical for this event. Mr. Siegel reminded everyone helmets are required for these event. Mr. Fiori noted the Legislators Ride is tomorrow. Dover Duathlon Ms. Courtney noted we had 65. Great age group of people participating in and in volunteers. Event was successful. There is some discussion on next year’s date. As we had decided to host this event the 2nd Saturday of April, however it has been brought to our attention due to the Coastal Running Festival. We will address the date of the 2019 at another time after some discussion. It was recommended to stay away from Easter weekend. Potentially, April 6 would be the best date. Everyone was asked to look into other events and report back things that felt would be of major conflict. ANNOUNCEMENTS No announcements. ADJOURNMENT With no further business the meeting adjourned at 6:10 PM without objection.

Private Development & the Senator Bikeway Existing Conditions, Paths to be Constructed, and Gaps to be Filled

Background: Expanded Requirements for Sidewalk and Multi-Use Path Construction  Starting in Spring 2017, DelDOT began requiring 10-foot wide multi-use paths to be constructed as part of approval for development projects in State Level 1 Investment Areas. Previously only 5-foot wide sidewalks were required.  Dover followed by passing an ordinance package in October 2017 (#2017-12) which included a revamp of the Zoning Ordinance’s sidewalk regulations. Under the new ordinance, the Planning Commission could request multi-use path instead of sidewalk in service of an adopted Bicycle or Pedestrian Plan.

Background: Involved Projects Area of proposed developments  Senator Bikeway to run 3.5 miles from Dover High School to DuPont Highway (Rt. 13)  First proposed as part of Dover’s 2015 Bicycle Plan  Route between Silver Lake Park and Rt. 13 not yet determined

Background: Involved Projects  Capital Station project approved by Planning Commission in June 2017; has submitted plans for Final Approval  65,000 square feet (SF) of retail and restaurant space, including a 21,998 SF Aldi grocery store

Background: Involved Projects  Lidl project originally approved by Planning Commission in July 2016; returned with new plan in March 2018 but withdrew application  36,185 SF grocery store, later revised to 25,400 SF with 7,500 SF separate retail building

Background: Involved Projects  Wells Fargo project approved as Administrative Site Plan by Planning Office in August 2017, currently under construction  No change to size of existing building; parking and circulation improvements only  NOT required to upgrade to multi-use path, as DelDOT entrance approval was not needed

Kings Highway Area Existing Conditions H wy BIKEABLE SHOULDERS EDGEHILL CVS N S Du po nt Feet 0 175 350 700 BIKE LANE WELLS EASTOVER W hit FARGO HILLS e Oa kR Hwy N D u pont d CAPITAL STATION p SITE Ma LOAN P TIL le PAYDAY LIDL GROCERY kw y SITE ADULT ST. JONES PROBATION SUBSTATION AND (COD) PAROLE Dr Hwy Park Kings LUTHER TOWERS Mill Dr MEMORIAL PARK visio E Di Lewis n St SILVER LAKE PARK EXISTING TRAIL Dela t Ave Ken CENTRAL MIDDLE SCHOOL w ar e Ave Source: Esri, DigitalGlobe, GeoEye, Earthstar Geographics, CNES/Airbus DS, USDA, USGS, AeroGRID, IGN, and the GIS User Community

Kings Highway Area Private Path wy Development H n t EDGEHILL po CVS N S Du Feet 0 175 350 700 REQUIRED MULTI-USE PATHS EASTOVER HILLS W hit e Oa kR Hwy N D u pont d CAPITAL STATION p SITE Ma P LIDL GROCERY le kw SITE y Dr Hwy Park Kings LUTHER TOWERS Mill Dr MEMORIAL PARK visio E Di Lewis n St SILVER LAKE PARK Dela w ar e Ave t Ave Ken CENTRAL MIDDLE SCHOOL Source: Esri, DigitalGlobe, GeoEye, Earthstar Geographics, CNES/Airbus DS, USDA, USGS, AeroGRID, IGN, and the GIS User Community

Kings Highway Area Post-Construction y n t Gaps Hw EDGEHILL po CVS N S Du Feet 0 175 350 700 EASTOVER HILLS W hit e Oa kR Hwy N D u pont d CAPITAL STATION p SITE Ma P LIDL GROCERY le kw SITE y Dr Hwy Park Kings LUTHER TOWERS Mill Dr MEMORIAL PARK visio E Di Lewis n St SILVER LAKE PARK Dela w ar e Ave t Ave Ken CENTRAL MIDDLE SCHOOL Source: Esri, DigitalGlobe, GeoEye, Earthstar Geographics, CNES/Airbus DS, USDA, USGS, AeroGRID, IGN, and the GIS User Community, Surdex Corp, 2017

Detail- North DuPont Highway and Division Street N Feet 0 45 90 180 Issues: -No path developed on Loan-Til-Payday Site -Must use 3 crosswalks to get from Loan-Til-Payday to bikeable shoulder on south side of White Oak Road, and vice versa -No bikeable shoulder on north side of White Oak Road until Halsey Road and Source: Esri, DigitalGlobe, GeoEye, Earthstar Geographics, CNES/Airbus DS, USDA, USGS, AeroGRID, IGN, the GIS User Community, Surdex Corp, 2017

Detail- North DuPont Highway and Division Street N Feet 0 45 90 180 Issues: -No crosswalk across DuPont on north side of intersection -No bikeable shoulders on Division Street until John Hunn Brown Road Surdex Corp, 2017

Detail- Division Street and Park Drive N Feet 0 45 90 180 Issues: -Narrow Right-of-Way -Power poles are close to street and cannot be moved Surdex Corp, 2017

Next Steps  Determine which route(s) are desired to access DuPont Highway from Silver Lake Park  Make intersection improvements at DuPont highway for crossing of selected routes  If Division Street route is selected, design path and acquire right-of-way so that St. Jones Substation operations are not impacted  If either major private project does not reach completion, plan to fill additional gaps left by it

The City of Dover Pedestrian Plan, February 2015, recommends a new Sidewalk or trail connecting Fox Hall West/Mallard Pond/Route 8. (Page 40). Fox Hall West/Mallard Pond/Route 8 Connector Fox Hall West and Mallard Pond are residential communities in the west part of Dover, comprising nearly 200 single‐family lots. The communities only have access from Kenton Road. …Fox Hall West is only about 1/4 mile north of Route 8. However, the community does not have vehicular or pedestrian access to Route 8, so all trips traveling to Route 8 must be made via Kenton Road. Due to the lack of sidewalks along Kenton Road, it can be safely assumed that these trips are almost exclusively done with a motor vehicle, as opposed to walking or riding a bike. The new Dover High School, which opened in the summer of 2014, is located along Route 8 in close proximity to these communities. However, due to the lack of pedestrian access to Route 8, a trip from the southern end of Fox Hall West to the new school is 2.2 miles, traveling along Kenton Road. If there were direct pedestrian access to Route 8 though, this trip would be reduced to 0.8 mile. The City of Dover owns 2 parcels of land in between Route 8 and Fox Hall West, comprising 8.7 acres of open space (including Mallard Pond Park). It is recommended that the City of Dover evaluate the feasibility of constructing a bicycle/pedestrian trail connection from Fox Hall West (via Pebble Valley Drive) to Marsh Creek Lane, as a means of providing a direct non‐motorized connection to Route 8. A trail connection could also be made to an existing sidewalk that connects the Mallard Pond community with the Mallard Pond Park. Providing direct pedestrian access to Route 8 would eliminate vehicular trips along Kenton Road, provide additional recreational access for area residents, and improve access to the new high school. Marsh Creek Lane is just east of the HAWK pedestrian‐activated traffic signal that was installed in the summer of 2014. Marsh Creek Lane has sidewalks along its entire length. In July 2014, the City held a Public Workshop, Mallard Pond Park Open House, to discuss the proposed trail concept with neighboring residents. The following is the feedback received during this Public Workshop.  As a resident of Brandywine, I would love to see an area for kids but you must take in consideration how close you build to Brandywine.  Having the playground in a central area near Mallard Pond, Heatherfield, Brandywine and Marsh Creek would be better. We are against vehicle traffic near Marsh Creek and a path too close to Brandywine.  I have security and noise concerns.  Opening paths to other neighborhoods is dangerous. There is already too much undesirable elements coming through. The Police have been little help. There are already many on Rte. 8 coming through the property which doesn’t make it easier.  If the playground is right by the Brandywine buildings, noise, vandalism to buildings and windows etc. is a concern

 Brandywine is private property and there are already problems with people using the parking lots. We have had drunken drivers and partying at the grills.  Put the playground in the back and upper corner away from the houses and buildings.  Foot traffic and bicycles in the morning is an issue with school safety in an area where there are already problems.  A walking path adjacent to Brandywine Court Condominiums is an extra burden to BCA and a safety issue since it will be extremely close. Putting the path along the tree line away from the buildings would be better.  The park area is better in a northern area where not as many resident are affected. A better buffer zone then by the condo. Put a fence since there needs to be anyway for kids’ safety.  Will the City shovel and take care of the proposed paths? Attending the Public Meeting were 16 adults and some children. Compiled, M. Cyr, June 2018

Proposed Mallard Pond Trail Link Existing Trail, approx. 1,180 feet Proposed Trail, approx. 650 feet Drainage swale with P1: Mallard Pond Park proposed culvert P2: Lands of Fox Hall West Addition P3: Lands of City of Dover P4: Lands of First Flag Inc. Date Created: 6/14/2018 0 90 180 360 540 720 Feet ¯ FOX HALL WEST ADDITION e Pl Pebble Valley Dr ro lin Ca P3 P2 HEATHERFIELD MALLARD POND (NEIGHBORHOOD) P4 P1 Matthew Ct HEATHERFIELD BRANDYWINE EAST APARTMENTS Stoney Dr Ke vin Ct Heatherfield Way n Par Have h Mars MARSH CREEK k Cree Dr Ln Forrest Ave

City of Dover RECEIVED I Delaware Bicycle Council MAY t 6 Z0l8 I I 800 Bay Road i P. O. Box 778 CITY MANAGER/MAYON Dover, DE 19903 May 8, 2018 Donna S. Mitchell (Acting) City Manager, City of Dover DOVER P.O. Box 475 Dover, DE 19903 Dear Sir or Madam - Since 2015, the cycling infrastructure innovation grant has been awarded to municipalities for projects that will yield high and visible impacts within the community. The Delaware Bicycle Council will again be awarding innovation grants this year. The amount available is expected to be a total of $20,000.00. The purpose of the Cycling Infrastructure Innovation Grant is to assist communities that want to become more bicycle-friendly. We use the " l 2-year old" test to illustrate this. Do the parents of a typical l2-year old feel comfortable allowing their child to bicycle to school? To the library? To get some ice cream downtown with their friends? To go to their friends'homes in other nearby neighborhoods? Or are most l2-year-olds (and adults!) trapped in an isolated "island" of a few blocks around their homes, unable to reach these sorts of everyday destinations because they don't want to cycle on or across roads where they feel uncomfortable or unsafe? Proposals for improving cycling can range from the simple to the grand. We will consider requests for assistance in advancing new projects, such as but not limited to pathways, protected bike lanes and bicycle streets. We will support project ideas that expand existing cycling infrastructure; fill "gaps"; and address obstacles and safety hazards. Projects should be located in area where the local jurisdiction (applicant) has control of the necessary right- of-way either through ownership or agreement. The local jurisdiction is expected to maintain the facility once constructed. We encourage you to think big when making an application. We want to fund ambitious projects with potentially significant impacts on bikeability in your community. Please review the photographs that have been attached showing innovative cycling improvements in other communities in Delaware and across the country. Your application will be evaluated alongside other applications we receive. A decision will be made by October 3,2018. If you do not receive an award this year, your application will be retained for consideration for the following year's grant.

Cycling Infrastructure Innovation Grant L) ,.. ) On behalf of the Delaware Bicycle Council, I invite you to apply for assistance to help realize a c community by filling out the attached appl Please e-mail your application to John Bicycle Coordinator at DelawareBikeCouncil(@state.de.us with the subject line "Cycling Infrastructure Grant" or mail to the Delaware Bicycle Council, attention John T. Fiori - Division of Planning, P.O. Box 778, Dover Delaware 19903. If there are any questions, please contact John T. Fiori at (302) 760-2260. Sincerely, a* Tom Hartley Chair, Delaware Bicycle Council

Cycling Infrastructure Innovation Grant Page 3 2018 Cycling Infrastructure Innovation Application All submissions are due not later than Julv 31. 2018 A letter agreement MUST be signed before awarded funds can be disbursed Applicant shall verify they are listed as a vendor in DeIDOT's system Applicant submits an invoice in the amount of the grant Grant funds MUST be spent in the fiscal year in which they are awarded. All funds MUST be disbursed by the end of the state's fiscal year (June 30, 20191 Description: On behalf of the Delaware Bicycle Council, cycling infrastructure grant funds have been made available. The goal of the Cycling Infrastructure Innovation Grant is to assist communities to become more bicycle-friendly. The Cycling Infrastructure Innovation Grant Working Group reviews and prioritizes the applications and grants are awarded by a vote of the full council. Eligibility: Grant requests must demonstrate the need for cycling improvements and/or infrastructure that will be a benefit to those in the community. Applicant Information Name Title Address City, State, Zip E-Mail Phone Project Information Project Name Type of Proposed Cycling Infrastructure On Road ( I Path or Trail t) Off Road il Signalization l ( Road lmprovement I I Location of Project Carry-over Project (from previous year)? Amount Requested Yes No s

Cycling Infrastructure Innovation Grant Page 4 Please attach a map showing the location of the needed cycling infrastructure improvement in your community: *Please answer the following questions* Below is a summary of the criteria used to evaluate the project and should be considered in the proposed project. Check in the box if your project meets the criteria: Check if Criteria Description/requirements Aonlicatlle Project connects to two (2) or mor€ compatible Missing Link L--J facilities Project needs to be completed to avoid a potential Avoiding a hazard hazard L-J Anticipated usage Project is located nearby a community center, post for transportation office, library, school, park or other bicycle routes t_) Master Plan Project is part of a Regional or Local master plan (--J Local government and community support. Ability to complete Minimum impacts to private properties, wetlands, L) l. Grant funds will be used for: Feasibility Study ( ) Design (_-) Construction L) If Other, please describe:

Cycling Infrastructure Innovation Grant Page 5 2. Is there a current executed scope of service with a consultant to perform the above task? Yes ( ) If yes, provide a copy. No C_) If No, does the city have a consulting firm on retainer or personnel on staff that can perform the task within the time constraints of the grant? 3. Please provide a brief description of the project. 4. Is the project identified in a Regional or Comprehensive Master Plan? If so, what is the date of the plan? 5. Have there been any previous attempts to advance this project (in this or another form) through means other than this grant? What was the result? 6. Does the project have any declared support from the local government and community? 7. Describe impact of the project, anticipated use/volume and how the project will be measured.

Cycling Infrastructure Innovation Grant Page 6 8. Are there any anticipated challenges (i.e., right-of-way, utilities, environmental) to the implementation of this project that we should be aware ofl 9. Is there a local entity who can maintain this facility? 10. If awarded a partial grant or if the entire grant will not cover the full cost of this phase, can other funding sources be secured to make up the difference? I 1 . What are the options to appropriate the next level of funding to keep the project moving forward (i.e. design and/or construction)? Other Sources of Funding Amount 12. Please attach any additional information or supporting documentation (letters of support, proof of leveraging funding, etc.).

Cycling Infrastructure Innovation Grant P age 7 of I nfrastructure Shared Use Path ryt _A !F A shared use path (sometimes called a trail or greenway) is a paved pathway designated for the use of cyclists (as well as other nonmotorized users) outside of any roadway. lt can be any length, from a short connector to link an adjacent ne to a major trail. A separated bike lane (sometimes called a protected bike lane or cycle track) is located within a roadway but is physically separated from motor vehicle traffic by markings, barriers, bollards, car parking and/or elevation differences. _l

Cycling Infrastructure Innovation Grant Pase 8 Street A bicycle street is a low-speed street that encourages bicycle through-going traffic but discourages cut-through motor-vehicle traffic. Local motor-vehicle traffic is permitted. A separated bike lane (sometimes called a protected bike lane or cycle track) is located within a roadway but is physically separated from motor vehicle traffic by markings, barriers, I bollards, car parking and/or elevation differences.

Cycling Infrastructure Innovation Grant Page 9 A separated bike lane (sometimes called a protected bike lane or cycle track) is located within a roadway but is physically separated from motor vehicle traffic by markings, barriers, bollards, car parking and/or elevation differences.

Cycling Infrastructure Innovation Grant Page 10 Shared Use Path L-J A shared use path (sometimes called a trail or greenway) is a paved pathway designated for the use of cyclists (as well as other nonmotorized users) outside of a roadway. lt can be any length, from a short connector to link an to a maior trail. A shared use path (sometimes called a trail or greenway) is a paved pathway designated for the use of cyclists (as wellas other nonmotorized users)outside of any roadway. lt can be any length, from a short connector to link an adjacent neighborhood to a

#1 Goal - Implement The Senator Bikeway Pages 35 - 51

Table of Contents Page Introduction 1 Goals and Objectives 2 Benefits of Biking 3 Accomplishments 4 Existing Conditions 5 Facilities 5 Land Use 10 Crash Analysis 12 Existing Plans, Policies, and Programs 14 Maintenance 24 Planned DelDOT Projects 26 Areas of Opportunity 28 Bicycle Facility Design 29 Low Stress Bicycling and Connectivity 31 Recommendations 32 Engineering 32 The Senator Bikeway 35 Other On-Road & Off-Road Recommendations 52 Engineering Summary 67 Education 68 Encouragement 69 Enforcement 70 Evaluation 71 Public Involvement 72 Acknowledgements 73

Introduction The City of Dover Bicycle Plan is the product of a planning process that was initiated by public interest and support. The City of Dover, Delaware has had a long interest in promoting safe and convenient transportation alternatives such as walking and biking. In 1997, the City developed its first Bicycle and Pedestrian Transportation Plan, which was incorpo- rated into the City's Comprehensive Plan. Through extensive public involvement, this initial plan provided an assess- ment of existing conditions for biking and walking in the City, as well as developed specific recommendations, an imple- mentation strategy, and potential funding sources. Since the adoption of the first plan, there have been numerous changes in the way that biking is viewed as a mode of transportation. Biking has taken on a new level of importance at the Federal, State and local levels, as transportation agencies have realized the effectiveness of this mode as an alternative to the motor vehicle. In addition to the transpor- tation benefits, biking provides measurable health, quality of life, environmental, and economic benefits to the local community. The graphic on page 3 describes these benefits in more detail. The benefits of biking have been recognized by the U.S. Department of Transportation through the creation of funding sources dedicated to transportation alternatives (such as the original Transportation Enhancement Program, now known as the Transportation Alternatives Program). In addition, the Delaware Department of Transportation (DelDOT) has long recognized the importance of biking as a viable transportation mode, and has established a full-time Bicycle Coordi- nator position to ensure that biking needs are incorporated into DelDOT projects throughout the state. In the current City of Dover 2008 Comprehensive Plan, bicycling is described in the Transportation chapter. Existing conditions for bicyclists are noted in the Comprehensive Plan. The report indicated that a large majority of public re- spondents believed there are an insufficient number of sidewalks within the City, and a higher number felt that more bike paths should be built. In addition, the Comprehensive Plan established specific recommendations for developing and expanding alternate modes of transportation. These recommendations are listed below:  Update and implement the Bicycle and Pedestrian Transportation Plan  Review the bicycle and pedestrian transportation network to identify gaps and important segments needed to provide a continuous network  Develop an implementation plan to complete this network  Amend the Zoning Ordinance to require bicycle parking for new non-residential development and multi-family development The Comprehensive Plan also establishes "support for pedestrian, bikeway, and public transit facilities in subdivisions and site plan applications." Finally, the Comprehensive Plan notes that "the City of Dover is committed to working with the Dover/Kent County Met- ropolitan Planning Organization (MPO) to reduce the air quality impact of auto emissions through sound land use plan- ning, enhancing the bicycle and pedestrian network in Dover, and encouraging increased use of public transit." Specific recommendations relating to clean air goals identified in the Comprehensive Plan are noted below:  Update and implement the Bicycle and Pedestrian Transportation Plan of 1997  Encourage and support the installation of multi-modal paths alongside street frontages where appropriate  Improve and widen sidewalks for bicycle and pedestrian use  Encourage DelDOT to increase bicycle paths along major routes within the City 1

Goals and Objectives The City of Dover Bicycle and Pedestrian Subcommittee has established the following goals and objectives as part of the update to the Bicycle Plan: Vision - "Dover is a place where people of all ages and abilities bicycle conveniently, comfortably and safely for all pur- poses." Goal 1 - Improve the bicycle transportation network  Consider needs of all user groups.  Identify key gaps in the network, and areas of safety concern.  Develop project ideas for gaps where solutions are not immediately obvious. Seek the advice of creative and experienced professionals.  Prioritize project requests and advocate for funding.  Track projects from planning through completion.  Seek especially to produce low-traffic, low-stress routes that are continuous.  # 1 goal - Create the Senator Bikeway (see pages 35 - 51) Goal 2 - Coordinate regular bicycle-route maintenance (surface cleaning & repair)  Identify maintenance responsibility for all bike routes  Encourage responsible parties to schedule regular maintenance  Develop communication system for reporting maintenance needs Goal 3 - Incorporate bicycle elements into land-use and development planning  Review local land-use and development ordinances, and recommend the incorporation of bicycle accommo- dations.  Seek requirement of “back exits” in single-entrance developments. Goal 4 - Encourage adequate and secure bicycle parking  Identify locations where bicycle parking is especially needed.  Review bicycle parking requirements in zoning codes and recommend revisions as needed.  Develop programs to encourage installation of bike parking facilities where zoning requirements are not ef- fective. (e.g. bike rack contest)  Require larger proposed businesses to incorporate showers into their facility design Goal 5 - Utilize educational programs for encouraging bicycle use and safety  Bike-to-Work Day  Bike-to-School Day  Traffic Skills 101 (League of American Bicyclists)  Develop signage and maps for low-traffic, low-stress bicycle routes. Goal 6 - Monitor use of bicycle facilities  Select bicycle survey tools for counting cyclists.  Schedule regular and repeating counts to detect changes.  Survey bicyclists of all ages and abilities for unmet facility needs.  Regularly report trends in commute, utility, recreational, and school cycling. 2

Benefits of Bicycling As noted below, bicycling provides a multitude of low-cost benefits to a community. Transportation Provides choices Reduces congestion Affordable solutions Health Environment Supports active living Support smart growth Provides recreation Bicycling Improves air quality Reduces obesity Improves access to natural areas Economic Supports local economy and tourism Buffers impacts of spikes in fuel prices Source: Adapted from 2009 Maryland Trails: Strategic Implementation Plan Bicycling Facts: The cost of operating a car for a year is approximately $10,300...the cost of operating a bicycle for a year is $308. A couple who lives in a walkable/bikeable community saves over $850 per year in fuel savings. Short car trips (which could be made by bike) are more polluting per mile than longer car trips. The majority of women (64%) get less than 10 minutes of vigorous exercise per week, contributing to health problems. Source: Pedestrian and Bicycle Information Center 3

Accomplishments Since 1997, the City of Dover has made great strides in creating a more bicycle-friendly city. Listed below are examples of some of the accomplishments that have occurred within the City since the previous Plan adoption:  Completion of the Capital City Trail (2014)  Establishing a Bicycle and Pedestrian Subcommittee (2013)  Adding designated bicycle lanes to portions of South Governors Avenue and portions of U.S. 13 (2012)  Construction of new trail systems within Silver Lake Park and Schutte Park  Construction of the Isaac Branch Trail, part of the St. Jones River Greenway (2007)  Requiring developers to incorporate bicycle facilities into their projects Amish Country Bike Tour  Holding community events such as the Amish Country Bike Tour and Bike To Work Day  Incorporating bicycle lanes into DelDOT improvement projects along major routes such as College Road, Walker Road, and East Loockerman Street In July 2013, the City’s Bicycle and Pedestrian Subcommit- tee submitted an application to the League of American Bicyclists for designation as a “Bicycle Friendly Communi- ty”. The League awards communities who apply for this designation after a detailed evaluation, and based on crite- ria that include engineering, education, encouragement, enforcement, evaluation & planning. Using these criteria, the League further ranks an awarded community as to its level of bike-friendliness with a Bronze, Silver, Gold or Plati- num ranking. Standards are high, and across the U.S., less than 300 cities have achieved Bicycle Friendly Community awards, with only 4 of them achieving Platinum status. In 2013 Dover’s application was thoroughly evaluated and declined by the League, who gave Dover an “Honorable Mention” for coming close to the required standards. The Silver Lake Park League further provided the city with numerous recommen- dations for improving conditions for bicycling, encouraging the City to reapply as soon as conditions improve. One of the key recommendations from the League was to “update the Bicycle Plan in close collaboration with the com- munity to ensure public involvement, information, and ownership.” Related to the Bike Plan update, other key points include:  Focus on developing a seamless cycling network, creating short distances between residential areas and schools, recreational areas, commercial areas, etc.  Increase usage through encouragement, education, and enforcement programs  Set ambitious but attainable targets  Ensure that there is dedicated funding  Primary goal: encourage residents to bike more often for recreation and transportation 4

Existing Conditions - Bicycle Facilities As part of the update to the Bicycle Plan, an inventory of existing bicycle facilities within City limits was conducted. The inventory evaluated the following components:  Off-road trails and pathways  On-road designated bicycle lanes  Bicycle parking (racks)  Sharrow locations Bike Rack at Dover Transit Center Figure 1 displays the results of the inventory, with the exception of the bike rack locations. Listed below is a summary of the key findings from the bicycle inventory:  There are approximately 9.0 centerline miles of off-road trails and pathways within the City.  There are approximately 9.0 miles of designated on-road bicycle lanes within the City.  There are approximately 600 bicycle parking spaces within the City. With the exception of 8 bicycle locker storage units located on the DelDOT campus, all of the bicycle parking spaces consist of bicycle racks.  There are approximately 1.9 roadway miles with sharrows. In 2013, DelDOT installed sharrows along portions of Loockerman Street, Division Street, and North Governors Avenue as part of a pavement rehabilitation project. East Loockerman Street South Governors Avenue 5

Existing Conditions - Bicycle Facilities 6

Existing Conditions - Bicycle Facilities Despite the accomplishments that have been made in recent years to enhance the bicycling network and improve con- nectivity in the City, there are still numerous areas that are difficult for bicycle travel. These areas are marked by high vehicular speeds, high traffic volumes, lack of shoulders, lack of designated bike lanes though intersections, and the presence of on-street parking. Generally, areas that are difficult for bicycle travel are located along the more densely developed areas of Dover, particularly near the downtown where the predominant function of the roadway system is geared towards the motor vehicle. A railroad line, a waterway, and a divided highway all cut north-to-south through Dover, limiting east-west travel to only three or four routes. Autos and trucks are all concentrated onto these few, heavily traveled roads, leaving little or no room for bicycle travel. Through the development of this Bicycle Plan update, with input from the City’s Bicycle and Pedestrian Subcommittee and the public, the areas listed in the table on the following page have been identified as impediments to safe bicycle travel in the City. In addition, these areas generally lack safe, attractive alternative routes. For a cyclist, these roads often offer the only means of traveling to and from a destination, despite the barriers that exist along these routes. The primary areas that lack adequate bicycle facilities are shown on Figure 2. Saulsbury Road Route 8 North State Street Division Street  Route 8/Division Street between U.S. 13 and Saulsbury Road is designated as a Regional Bicycle Route, yet lacks bike lanes or striped shoulders or a designated off-road path.  North State Street provides the only north-south access over Silver Lake from downtown Dover to U.S. 13. The high - traffic road lacks shoulders and is a major impediment to bicycle travel to north Dover. 7

Existing Conditions - Bicycle Facilities Roadway Segments With Conditions That Discourage Bicycle Use Rank Road Limits Issues 1A Route 8/Forrest Avenue Weston Drive to Saulsbury Road High traffic volumes (18,000/day) 4 - 6 lane highway, No shoulders 1B Route 8/Division Street U.S. 13 to Weston Drive High traffic volumes (13,000/day) On-street parking No bike lanes 2 North State Street Walker Road to U.S. 13 High traffic volumes (14,000/day) 4 lane highway, No shoulders 3 College Road McKee Road to Kenton Road High traffic volumes (11,000/day) Only available east-west route No shoulders High traffic volumes (9,000/day) 4 West Street North Street to Queen Street No bike lanes or shoulders 5 Walker Road State Street to Saulsbury Road High traffic volumes (11,000/day) No bike lanes, minimal shoulders 6 Saulsbury Road North Street to Route 8 High traffic volumes (17,000/day) Bike lane not continuous 7 MLK Boulevard/ Babb Drive to High traffic volumes (10,000/day) South Little Creek Road Legislative Hall No bike lanes or shoulders 8 U.S. 13 Puncheon Run to Scarborough Road 4 - 6 lane, high-speed highway Very high traffic volumes (40,000 - 60,000/day) 9 Mifflin Road Route 8 to Hazlettville Road High traffic volumes (15,000/day) Mini-roundabout 10 Kenton Road Denneys Road to Route 8 Minimal shoulders High speeds 11 North Street Federal Street to Commerce Way No continuous bike lanes/shoulders 8

Existing Conditions - Bicycle Facilities 9

Existing Conditions - Land Use The City of Dover has a diverse mixture of land uses within its 22.7 square mile area. The City, with an estimated 2012 population of 37,090, has the second largest municipal population in Delaware. Dover is also the largest municipality in the state in terms of land area. Based on data provided by the City of Dover Planning Department, listed below is a breakdown of the land uses within the City limits, as of 2013. Existing land uses are also shown on Figure 3. Residential Land Use Category Amount As noted in the table, the predominant land use within City limits is Agriculture/Open Space 38.5% agricultural and open space. Residential land use is also a primary use. Residential 19.1% High density residential is located in the downtown core (roughly a square mile area), while lower density, single-family residential land use Dover Air Force Base 18.0% composes the majority of the land use in the surrounding suburbs. Other 17.4% Commercial Institutional 8.7% Commercial 8.3% U.S. 13 is by far the primary commercial corridor throughout the entire City limits, as well as the Kent County region. This roadway facilitates a wide variety of traditional highway commercial uses, ranging from offices to restaurants to regional malls (Dover Mall). Other corri- dors with a high concentration of commercial uses include Bay Road, Route 8 (west of Saulsbury Road), and Loocker- man Street in downtown Dover. Educational There are 4 universities and college within City limits - Delaware State University, Wilmington University, Delaware Technical and Community College, and Wesley College. In addition, there are 11 public schools in the City of Dover, 8 of which are elementary schools. All of these facilities are shown on Figure 1. Loockerman Street Institutional The State of Delaware owns a variety of government buildings in Dover, including Legislative Hall, the State Archives, and the Kent County Courthouse. The downtown area also houses City Hall, a new library, the regional hospital, several museums, a vibrant historic district, and the Kent County transit hub. Open Space/Parks There are 24 City-maintained parks in Dover. Most of these are small parks located within subdivisions or on small lots in the downtown. There are several parks that are able to provide active recreational opportunities for large numbers of residents, including Schutte Park, Silver Lake Park, and Dover Park. In addition, The Green was recently incorporated into the National Park System as a National Monument. The Green 10

Existing Conditions - Land Use DAFB DAFB 11

Bicycle Crash Analysis As part of the assessment of biking conditions within the City, crash data from 2011 to 2013 was analyzed to determine the number and severity of bicycle crashes that occurred during the 3-year period. In addition, the analysis was used to determine if there were any concentrated areas of bicycle or pedestrian crashes, in an effort to identify future engineer- ing or enforcement solutions that could potentially address the crash history. Figure 4 shows the location of all reported bicycle crashes that occurred within City limits from 2011 to 2013, as com- piled by the City of Dover Police Department. Listed below is a summary of the crash data:  There were 34 reported bicycle crashes between 2011 and 2013.  Personal injuries were involved in 22 crashes (65%).  There were no fatal crashes reported during the 3 year period.  There were no high concentrations of bicycle crash areas identified throughout the City. However, nearly 1/3 of the crashes (10) occurred at various locations along U.S. 13.  As noted in the chart below, the majority of the bicycle crashes (19) occurred between noon and 6:00 PM. Bicycle Crashes Year (2011 - 2013) 2011 7 9% 6% 2012 14 29% Midnight to 6:00 AM 2013 13 6:00 AM to Noon Total 34 56% Noon to 6:00 PM 6:00 PM to Midnight Bicycle Crashes - Time of Day In the fall of 2012, as part of a DelDOT pavement rehabilitation project, bicycle lanes were installed on U.S. 13 from the former Sheraton Hotel (now Delaware State University Commons) to Kings Highway/White Oak Road (2.6 miles) and from Martin Luther King Boulevard to River Road/Public Safety Boulevard (0.3 miles). There were 9 crashes that in- volved a bicycle crash within these limits. The results are shown in the chart below. U.S. 13 Crashes Time (2011 - 2013) Before Bike Lane Project 3 During Bike Lane Project 1 After Bike Lane Project 5 U.S. 13 Bike Lane 12

Bicycle Crash Analysis 13

Existing Plans, Policies, and Programs City of Dover Bicycle and Pedestrian Transportation Plan (1997) As noted, the City of Dover’s previous Bicycle and Pedestrian Plan was adopted in 1997. The 1997 Plan details engi- neering, education, encouragement, and enforcement goals as they relate to biking and walking. The Plan presents a detailed assessment of specific bicycling needs throughout the City of Dover, based on a rating system of roadway con- ditions known as Bicycle Level of Service. In addition, the Plan details potential pedestrian needs based upon a Pedes- trian Index evaluation. The Plan also identifies short-term and long-term actions designed to make the City of Dover more bicycle and pedestrian friendly. The top ten recommended projects are listed below, with an accompanying sta- tus. Project Status 1. Schutte Park Off-Road Connection Not implemented 2. New Burton Road Pedestrian Crossing Not implemented 3. Path between Del Tech and Del State To be accommodated by Crawford Carroll Road Extension (2019) 4. Sidewalk Inventory/Spot Improvements To be completed as part of current Bicycle and Pedestrian Plan update 5. Establish Gateway Treatments Not implemented 6. Designate Commercial Corridors Not implemented 7. Walker Road Bike/Ped Improvements Partially Implemented 8. Improve Delaware Bicycle Route 1 Not implemented 9. Establish Dover Area Greenways Not implemented 10. Mifflin Road/Hazlettville Road Partially implemented Bike Route 1 Walker Road 14

Existing Plans, Policies, and Programs City of Dover Code of Ordinances The City of Dover Code of Ordinances has several references to bicycle amenities that are required as part of large-scale development projects. As noted in the Code, “bicycle parking shall be provided for parking spaces at a rate of one bicy- cle parking space for every 20 vehicular parking spaces.” In an effort to enhance and promote bicycle-friendly communities, the City has two additional categories that provide developers with flexibility and incentives to address biking needs through land use design. The categories are the Corri- dor Overlay Zone and the Traditional Neighborhood Design (TND), a zoning designation. The City of Dover has established a Corridor Overlay Zone along two roads in the northwestern part of the City:  Route 8 (Railroad tracks to western City limits)  McKee Road/Saulsbury Road (Denneys Road to North Street) The Corridor Overlay Zone has several primary purposes:  Promote superior urban design  Foster connections among adjacent properties  Preserve the function and efficiency of the roadway  Achieve a balanced streetscape which is friendly to the McKee Road Path pedestrian and motorist alike By Code reference, superior urban design includes “transportation amenities for bicycles, pedestrians, and transit that exceed those required by the zoning ordinance.” As stated in the Code, “the intent of the TND zone is to create a walkable and pedestrian-friendly, economically viable professional, commercial and mixed use residential neighborhood for people of different ages and incomes that draw from the best architectural and community design features of Delaware and the Delmarva Peninsula from its colonial past to the mid 20th century. Its intent is also to preserve and enhance the natural landscape, celebrate the history of the site, and buffer the development from adverse external influences. The provisions of this section are intended to encourage greater integration of land-uses and diversity of lot sizes than is permitted under other provisions of the Land Subdivision Regulations and Zoning Ordinance of the City of Dover. Lastly, it may provide locations for other uses that will aid in the fulfillment of the City of Dover's Comprehensive Plan and allow people to live near their work.” “The TND shall have a pedestrian walkway and/or bicycle system through the open spaces that connect to the street system or connects a series of open spaces. Bicycle parking and locking facilities should be provided in public spaces...” One of the first communities being developed under the TND zoning category is the Eden Hill Farm, a 265-acre mixed use development along North Street. The community, which is currently under construction, provides a mixture of commercial, residential, institutional, and open space located in close proximity to each other. The land use, combined with wide sidewalks, interconnections, and an internal trail network, creates a true bicycle-friendly new community in the heart of Dover. 15

Existing Plans, Policies, and Programs First State Trails and Pathways Initiative The First State Trails and Pathways Initiative is a program managed by the State of Delaware whose primary goal is to “create a world-class statewide network of pathways and trails for Delaware’s citizens and visitors, to promote biking, hiking, walking, and active living.” The Initiative is managed in partnership by DelDOT and the Department of Natural Resources and Environmental Control (DNREC). The program was initiated in 2012 by Governor Jack Markell, in an effort to address the following goals:  Establish Delaware as a Top Ten Bicycle Friendly State (as designated by the League of American Bicyclists).  Support the creation of jobs resulting from investments in biking and walking  Create/expand community connections  Create healthy and active communities  Provide safe, affordable transportation and recreational choices  Incorporate environmentally-friendly practices into trail projects In Fiscal Years 2012 and 2013, the State of Delaware allocated $20 million towards this program. Since the program was initiated, numerous trails and pathways projects have been planned, designed, and constructed throughout the state. In addition, Delaware has improved its ranking as a Bicycle Friendly State, jumping from a national ranking of #10 in 2012 to #4 in 2014. Delaware is designated by the League of American Bicyclists as the most Bicycle Friendly State east of the Mississippi River. The City of Dover has been a direct beneficiary of the First State Trails and Pathways Program, as evidenced by the completion of the Capital City Trail in 2014. As noted on the map below, the Capital City Trail is a shared-use pathway that provides a direct connection from Silver Lake Park to the Isaac Branch Trail (a 2.6-mile greenway that connects U.S. 13 and Route 10). The Capital City Trail was completed through a combination of widening existing sidewalks and installing new pathways to create an important pedestrian and biking facility in the heart of downtown Dover. The Capi- tal City Trail also provides an enhanced gateway into the Legislative Hall complex, as well as improves pedestrian and bicycle safety along East Loockerman Street and MLK Boulevard. Capital City Trail 16

Existing Plans, Policies, and Programs DelDOT Complete Streets Policy Within the City of Dover, the Department of Transportation is responsible for the maintenance of all State roads within City limits. These include arterial routes such as U.S. 13, U.S. 13A (Governors Avenue), Delaware Route 8, Delaware Route 15, and State Street. Collector routes such as White Oak Road, New Burton Road, and Walker Road are also maintained by DelDOT. The vast majority of the roads in the City of Dover are maintained by the State. The City of Dover provides maintenance responsibilities for all City streets. Examples of City-maintained streets primari- ly include streets in the urban downtown core, such as Bradford Street and Kirkwood Street. In 2010, DelDOT adopted its Complete Streets Policy. As noted in the Policy, “the term Complete Street means a road- way that accommodates all travelers, particularly public transit users, bicyclists, pedestrians, and motorists, to enable all travelers to use the roadway safely and efficiently.” The purpose of the Complete Streets Policy is “to ensure that the DelDOT system modifications are routinely planned, designed, constructed, operated, and maintained in a way that ena- bles safe and efficient access for all users. The result should be a system for all users that is comprehensive, integrated, connected, safe, and efficient allowing users to choose among different transportation modes, both motorized and non- motorized.” A primary objective of the Policy is “to define and implement changes to the project development process that will value all transportation modes during the project scoping phase and enhance currently used design practices through updates to DelDOT subdivision and design manuals, design memoranda, and policies.” The DelDOT Complete Streets Policy indicates that “all projects in the state right-of-way that are considered road recon- struction, widens the pavement width, or allows for the inclusion of facilities for all users, shall consider all transporta- tion modes and accommodate accordingly.” Since its adoption, DelDOT has incorporated elements of the Complete Streets Policy into several projects in Dover, in- cluding the South Governors Avenue improvement project, which added continuous 5-foot striped bicycle lanes through- out the project limits (Water Street to Webbs Lane). As part of a recent pavement rehabilitation project along U.S. 13 through Dover, DelDOT reduced the existing lane widths from 12 feet to 11 feet, in order to provide a 5-foot wide bicycle lane in accordance with the Policy. As part of a recent pavement rehabilitation project along East Loockerman Street, DelDOT re-striped an existing shoulder to provide a 5-foot wide bicycle lane. This improvement facilitates bicycle mobility from downtown Dover to U.S. 13. In addition, DelDOT is including a 10-foot wide shared use path and 7-foot wide striped bike lanes into the design of the West Dover Connector, a 3.2-mile long new roadway that will provide a direct connection between Saulsbury Road and U.S. 13. This project will East Loockerman Street significantly improve bicycle access from the south part of Dover (as well as Brecknock Park in Camden) to west Dover, including Schutte Park and the existing path along Saulsbury Road. Proposed Typical Section - West Dover Connector (North of Charles Polk Road and South of Puncheon Run) 17

Existing Plans, Policies, and Programs DelDOT Statewide Bicycle Plan The Delaware Bicycle Facility Master Plan was adopted in October 2005. As noted in the document, “the Master Plan was developed in order to define and implement a statewide system of designated, on-road bicycle routes. The Master Plan provides specific guidance as to the location and nature of appropriate accommodations along DelDOT-maintained roadways.” There were two primary goals established in the Master Plan:  Integrate existing bicycle routes and trails into a larger statewide bicycle network  Establish bicycle routes between municipalities, activity centers, and recreational areas The Master Plan developed a statewide network of on-road bikeways (known as Statewide Routes, Regional Routes, and Recreational Connector Routes) and a corresponding set of design recommendations for each type of bikeway. The bikeway designations noted in the Master Plan include:  Bike Lanes (5-foot minimum width)  Shared Shoulders (5-foot minimum width)  Wide Outside Travel Lane (14-foot minimum width) In 2011, DelDOT updated the Bicycle Maps for each county, which can be found on the DelDOT web site at http:// deldot.gov/information/community_programs_and_services/bike/. Examples of several bicycle route categories are shown in the photos below. It is important to note that many of the DelDOT designated “Bicycle Routes” have limited bicycle facilities, and some segments of these routes are considered challenging for bicycle users. These Bicycle Routes were chosen based on their location, not necessarily on the presence of bike facilities. The expectation was that a road so designated might, at some future time, be more likely to be provided with bicycle facilities. Statewide Bicycle Route: provides north-south connections between New Castle, Kent, and Sussex Counties (Bike Route 1 runs on the west side of Dover). Regional Bicycle Route: provides direct connections between municipalities and activity centers. Connector Bicycle Route: provides connections between local activity/recreational centers to the larger bicycle net- work. Statewide Bicycle Route - Wyoming Mill Road Regional Bicycle Route - East Division Street 18

Existing Plans, Policies, and Programs DelDOT Safe Routes to School Program The Safe Routes to School (SRTS) Program is a DelDOT program whose primary purpose is to facilitate and encourage children to walk and bike to school safely. The State program was established in 2002, and the corresponding Federal SRTS program was initiated in 2005. Any public, private or charter schools are eligible to participate in the program, provided the projects benefit elementary and middle school age children. The SRTS program is divided into 5 compo- nents (the 5E’s): Engineering, Education, Enforcement, Encouragement, and Evaluation. DelDOT works with each school in the program to develop a Safe Routes to School Plan that incorporates each of these five elements into a com- prehensive program. Examples of eligible infrastructure and non-infrastructure costs are listed below. Infrastructure Non-infrastructure Sidewalk improvements Traffic education and enforcement Traffic calming Student sessions on safety Pedestrian signals Parent education materials Bicycle parking Evaluation and data gathering Four SRTS projects have been completed in the City of Dover, which consisted of improvements along routes to two elementary schools (Booker T. Washington and Towne Point) and two middle schools (William Henry and Central Mid- dle) in the Capital School District. These improvements were completed in 2010 and 2011. The Capital School District was one of the first school districts in the state to take advantage of the Safe Routes to School funding. Central Middle School William Henry Middle School In addition, one SRTS project is currently in design, a project to enhance bicycle and pedestrian access to W. Reilly Brown Elementary School on Webbs Lane. The project, which consists of new bulb outs, signals, and sidewalk upgrades, is scheduled for construction in the summer of 2015. There are currently no other SRTS projects proposed in the City of Dover. Webbs Lane at W. Reilly Brown School 19

Existing Plans, Policies, and Programs MPO 2030 Regional Bicycle Plan In the fall of 2011, the Dover/Kent County MPO completed the 2030 Regional Bicycle Plan for Kent County, Delaware. The Regional Bicycle Plan was completed after nearly two years of effort involving DelDOT, the Department of Natural Resources and Environmental Control, Kent County Planning, the City of Dover and other municipalities, and bicycle ad- vocates throughout the county. The MPO Regional Bicycle Plan identifies the following six objectives:  Create an effective and safe bicycle transportation system  Increase the number of local trips made by bicycle  Increase the number of students biking to school  Increase the number of people biking to work  Increase recreational and fitness riding  Create an environment where all bicyclists and motorists follow the rules of the road Performance measures (such as increasing the amount of multi-use paths to 40 miles by 2030) are also included for each of the Plan’s objectives. As noted in the document, “the Regional Bicycle Plan outlines four new policies...that will serve as guidance to cities and towns and/or for implementation by DelDOT on projects undertaken in the region.” These policies are listed below. Policy 1: Selecting Appropriate On Road Bicycle Facilities Policy 2: Bicycle Facilities at Intersections Policy 3: Bicycle Parking Policy 4: Education and Enforcement In terms of physical improvements, the Regional Bicycle Plan recommended 18 on-road improvement locations and 7 off-road improvement locations throughout Kent County. On-road improvements consist of measures such as shoulder widening, lane width reallocation, signing, striping, and other pavement markings. Off-road recommendations include new shared-use trails and pathways. As Kent County’s largest urban area, the City of Dover is a primary focus of the Regional Bicycle Plan’s recommendations. Ten of the eighteen recommended on-road improvements are located within Dover, while 4 of the 7 recommended off-road trails are also located within or adjacent to City limits. Since its adoption in the fall of 2011, the Regional Bicycle Plan has been used by DelDOT to implement several of the top priority projects recommended in the Plan, including all 3 phases of the Capital City Trail. In addition, conceptual planning has been initiated on West Street, another highly ranked project. Figure 5 shows the on-road and off-road bicycle improvement recommendations that are located within the city limits of Dover, as noted in the MPO Regional Bicycle Plan. 20

Existing Plans, Policies, and Programs MPO Regional Bicycle Plan Recommendations (On-Road) Rank Project Limits Description Status 1 West Street North Street to Queen Street Widen road to provide bike lanes Conceptual design 2 U.S. 13 Scarborough Road to Add striped bicycle lanes Partially complete Puncheon Run 3 Denneys U.S. 13 to Kenton Road Widen road to provide bike lanes N/A Road 4 North State U.S. 13 to Walker Road Reallocate lane width to add N/A Street bike lanes 5 Route 8 Railroad to Heatherfield Way Reallocate lane width to add N/A bike lanes 6 Walker Road State Street to Saulsbury Road Reallocate lane width to add N/A bike lanes 7 North Street Wyoming Mill Road to West Street Add a westbound bike lane N/A 8 College Road Saulsbury Road to Kenton Road Widen road to provide bike lanes N/A 11 Saulsbury Rd U.S. 13 to North Street Provide continuous bike lanes N/A 13 Kenton Road Route 8 to Denneys Road Widen road to provide bike lanes Design (FY 2016) MPO Regional Bicycle Plan Recommendations (Off-Road) 1 Dover Silver Lake to St. Jones River Construct trail along the Capital City Trail Greenway St. Jones River 2 Camden to Schutte Park to Brecknock Park Construct new trail to connect N/A Dover Trail the parks 3 DAFB Trail Route 10 to Route 9 Construct new trail along DAFB N/A 4 Route 10 U.S. 13 to Isaac Branch Trail Construct new trail Planning study 21

Existing Plans, Policies, and Programs 22

Existing Plans, Policies, and Programs Advocacy and Interest Groups In Delaware, there are two primary organizations that are advocates for bicycling interests throughout the state, the Delaware Bicycle Council and Bike Delaware. The Delaware Bicycle Council consists of 15 members who represent vari- ous government agencies (public safety, transportation, education, recreation, public health), as well as citizen repre- sentatives from each county. The primary purpose of the Delaware Bicycle Council is to “consider, review, and work on matters pertaining to bicycling, bicycle safety, and bicycle education, and to make recommendations to various state agencies.” The Delaware Bicycle Council serves as a resource in policy-making and legislative issues, in order to ulti- mately increase facilities and opportunities for bicyclists in Delaware. Bike Delaware is an independent, non-government advocacy organization that is supported solely by its membership. Its mission “is to make bicycling a safe, convenient, and fun transportation option in Delaware by working in partnership with government, business, and community groups.” Bike Delaware, based in New Castle County, has a 7-member Board of Directors and is staffed by an Executive Director who lobbies for cycling interests throughout the state. The Downstate Delaware Striders and Riders is a group of bicyclists and runners who regularly hold events in and around the Dover area. The group holds weekly trail runs, in addition to regularly participating in running and bicycling events such as the Buffalo Stampede in the nearby Town of Wyoming. The group includes both recreational and com- petitive cyclists and runners. 23

Maintenance Maintenance-related components are identified as one of the six primary Goals to be addressed by the City of Dover Bi- cycle Plan. The following specific maintenance objectives were identified by the Bicycle and Pedestrian Subcommittee:  Identify maintenance responsibility for all bike routes  Encourage responsible parties to schedule regular maintenance  Develop communication system for reporting maintenance needs With regards to maintenance responsibilities, there are two different entities that play a role in the maintenance of bicy- cle facilities: DelDOT and the City of Dover. Listed below is a synopsis of the existing maintenance responsibilities of each entity, based on current policies and procedures. DelDOT Maintenance Responsibilities In accordance with a long-standing municipal agreement between the Department of Transportation and the City of Do- ver, DelDOT provides maintenance on state roads from curb to curb. Based on the town agreement between the 2 enti- ties, the City is responsible for maintenance on any transportation facilities beyond the curb line. This would include sidewalks and shared-use pathways. DelDOT adopted its Sidewalk and Multi-Use Path Maintenance Policy in 2013. As stated in the Policy, DelDOT does not maintain sidewalks owned or maintained by municipalities, located in subdivisions, privately owned, or maintained by others through a written agreement. With regards to snow removal of sidewalks and pathways, the Policy specifies the following:  In conjunction with established priorities for snow removal on roadways, snow removal for sidewalks and multi-use paths will commence immediately after completion of roads classified as “local” and subdivision Route 8 (Near Modern Maturity Center)  Sidewalks and multi-use paths will be prioritized based on pedestrian traffic, high densities of elderly and dis- abled, schools, transit routes, and other high volume pedestrian facilities Maintenance of any bicycle facilities within the curb limits of the State’s right-of-way, including re-striping of bike lanes, debris removal, resurfacing, etc. is the responsibility of the Department of Transportation. As stated in the Policy, “all other maintenance, such as sweeping and trash removal, will be performed as resources are available within the Department.” With regards to street sweeping, in August 2014, DelDOT submitted its final Storm- water Management Plan for DNREC and Environmental Protection Agency review. The sweeping plan was required to be a science-based strategy targeting pollutant removal from state-owned roads before it enters the storm sewer sys- tem, and ultimately into rivers, lakes and streams. The “targeted” approach means that DelDOT is focusing on roads that have direct connections to the storm sewer system in areas that have the greatest potential to produce harmful pollutants (i.e. high traffic, commercial, industrial, residential). Each of these road types is swept at a frequency that maximizes DelDOT resources (manpower, equipment, budget) while meeting the terms of the National Pollutant Dis- charge Elimination System (NPDES) permit, which is to effectively prohibit the discharge of material other than storm- water. Because these road sections fall under different roadway categories, sweeping frequency will vary, but all will be swept at a frequency greater than the previous plan. Once the sweeping plan has been approved by DNREC and EPA, the exact frequency for each road will be known. 24

Maintenance Adopt A Bikeway Program The Department of Transportation has a program that enables volunteers to “adopt” a state-owned bike path. Initiated in 2004, the Program is a partnership between DelDOT and volunteers to care for a designated bike path a minimum of three times a year. Volunteers remove debris, trash, etc. in an effort to make the bike path safer for cyclists, as well as keeping the bike path and surrounding area cleaner. Currently, there are no bike paths that have been “adopted” in the City of Dover. City of Dover Maintenance Responsibilities The Dover Code of Ordinances contains several references to the maintenance responsibilities for sidewalks. However, maintenance of bike paths and shared-use facilities is not referenced in the Code. As a result, it is recommended that the term “shared-use facility” be added to any sidewalk maintenance reference in the City’s Code. This would require a revision to the Code of Ordinances, to be adopted by City Council. The City currently provides maintenance on bike paths located within the City’s park system, such as the trails within Schutte Park and Silver Lake Park. In addition, the City is currently providing maintenance on the U.S. 13 portion of the Capital City Trail, between the Thomas Collins Building and MLK Boulevard. The City will also be providing maintenance along Park Drive, once Phase III of the Capital City Trail is completed in 2014. Silver Lake Park 25

Planned DelDOT Projects DelDOT has numerous projects planned in the City of Dover that will enhance mobility and safety for bicyclists. Listed below is a preliminary schedule for each proposed project, based on the DelDOT Fiscal Year 2015 - 2020 Capital Trans- portation Plan, as published in July 2014. The proposed DelDOT projects are also shown on Figure 6. Only one project is currently funded for construction - the West Dover Connector. Proposed DelDOT Projects Project Limits Length Description Anticipated (Miles) Construction Construct a new road, extending Saulsbury Road to U.S. 13. Incorporates sidewalks, bike lanes, West Dover Connector North Street to 3.2 and a shared use path. Project will FY 2015 U.S. 13 connect Brecknock Park and Schutte Park, and will form part of a greater bike loop proposed around Dover. Kenton Road Route 8 to 1.2 Widen Kenton Road to include FY 2020+ Chestnut Grove Road shoulders, bike lanes, and sidewalks Loockerman Street/ Intersection 0.1 Install a roundabout and create a FY 2020+ Forest Street pedestrian friendly gateway Crawford Carroll Road Lowes to U.S. 13 0.5 Extend existing road to U.S. 13 Extension opposite Dover Mall, and include bike FY 2020+ and pedestrian amenities U.S. 13 Widening Puncheon Run to 0.3 Add a third through lane and FY 2020+ Walnut Shade Road continuous sidewalks to U.S. 13. U.S. 13 Sidewalks MLK Boulevard to 0.3 Install new sidewalks on both north- FY 2020+ Loockerman Street bound and southbound U.S. 13 Route 8/ 0.2 Install an additional through lane Saulsbury Road Intersection and left turn lane on NB and SB FY 2020+ Saulsbury Road 26

Planned DelDOT Projects 27

Areas of Opportunity Despite the measurable and significant progress that has been made over the past 17 years since the initial Bicycle and Pedestrian Plan was developed, there are still many areas of opportunity to make the City of Dover a more bicycle- friendly city. In its Bicycle Friendly Community Feedback Report (Fall 2013), the League of American Bicyclists identified the following key measures to improve cycling in Dover:  Appoint a staff member to become Bicycle and Pedestrian Coordinator  Update the Bicycle Plan  Continue to expand the bike network and increase network connectivity through the use of bike lanes, paths, and shared lane markings. Suggested improvements include:  Route 8 (Weston Drive to Saulsbury Road)  South West Street (North Street to Queen Street)  North State Street (Walker Road to U.S. 13)  Saulsbury Road (Gateway Boulevard to North Street)  College Road (McKee Road to Kenton Road)  Increase the amount of high quality bicycle parking at popular destinations  Increase maintenance of the city’s off-road bicycle network  Host a League Cycling Instructor seminar to increase the number of certified instructors in Dover Bike to Work Day 2013  Ensure that bicycle safety education is included in the local schools  Expand encouragement efforts during Bike Month with local bicycle advocacy groups  Encourage the colleges and universities to promote cycling and seek recognition through the Bicycle Friendly University program  Conduct regular bicycle counts to determine bicycle usage and demand The League of American Bicyclists also offered 49 other specific recommendations (short-term and long-term) to further promote bicycling in Dover, in the areas of Engineering, Education, Encouragement, Enforcement, and Evaluation. Ex- amples of the short-term measures are listed below. Engineering Education Implement road diets in appropriate locations Offer bicycle education for youth outside of school Consider raised crossings or grade-separated crossings Create a Bicycle Ambassador program Encouragement Enforcement Host or sponsor bicycle-themed community events Invite the police to the Bicycle/Pedestrian committee Set up a community celebration and social ride when a Have police officers distribute helmets, lights, and locks bike project is completed to the community Evaluation Adopt a target level of bicycle use and collect data to monitor progress Identify the most appropriate routes for inclusion in the bike network, determine weak links, and prioritize improvements 28

Bicycle Facility Design There are a wide variety of design techniques and facilities that have been used in Dover, as well as other areas throughout the world, that provide for safe and efficient bicycle travel. The table below and on the following page pro- vides a summary of the different facilities commonly used today. These techniques are cited in publications such as the DelDOT Road Design Manual, the Delaware Manual on Uniform Traffic Control Devices (MUTCD), the American Associa- tion of State Highway and Transportation Officials (AASHTO) Guide for the Development of Bicycle Facilities, and the National Association of City Transportation Officials (NACTO) Urban Bikeway Design Guide. Type Width Use Example Bike Lane 4 - 6 ft. Bicycle travel along the road Colored 4 - 6 ft. Bicycle travel Bike Lane along the road Buffered 4 - 6 ft. Bicycle travel Bike Lane along the road Sharrow N/A Low-volume, low-speed roads where bike lanes aren’t practical 29

Bicycle Facility Design Type Width Use Example Pathway 8 - 10 ft. Route separated from motor vehicles and shared with pedestrians. Often parallel to high-speed roads Cycle Track 10 - 16 ft. Route within the road, separated from motor vehicles and pedestrians Bicycle N/A Low-volume, low- Boulevard speed roads where bicycle travel is given priority over motor vehicles Trail 8 - 10 ft. Recreational route that connects with the overall bicycle network 30

Low Stress Bicycling and Connectivity In 2007, the City of Portland, Oregon developed a classification system of bicycle facilities based on a survey of resi- dent’s attitudes in general and towards bicycle travel. The system concluded that the population was divided into 4 clas- sifications as they relate to a person’s affinity for different types of bicycle facilities: Based on Portland’s research, characteristics of each 1% classification are noted below: 6% Strong & fearless (1%) - respond well to riding in 33% almost any traffic condition Strong & Fearless Enthused & Confident Enthused & confident (6%) - respond well to rid- 60% Interested But Concerned ing in bike lanes along arterial roads and sharing No Way, No How smaller roads with traffic Interested but concerned (60%) - uncomfortable with riding with traffic but respond well to off-road paths and low-volume, low-speed streets No way, no how (33%) - no interest in riding a Portland’s Classification System for Bicyclists bicycle Following up on Portland’s initial research, the Mineta Transportation Institute (MTI) published a report in May 2012 en- titled “Low-Stress Bicycling and Network Connectivity”. This publication details a methodology used to evaluate low- stress bicycling and the network connectivity required to make that a reality. As noted in the report abstract, “for a bicycling net- Level of Traffic Example work to attract the widest possible segment of Stress the population, its most fundamental attribute should be low-stress connectivity, providing routes between people’s origins and destina- tions that do not require cyclists to use links LTS 1 that exceed their tolerance for traffic stress, and that do not involve undue level of detour.” The primary objective of the study was to develop measures of low-stress connectivity that can be used to evaluate and guide bicycle network planning. The study classified road segments into 4 levels of traffic LTS 2 stress, based on traffic characteristics (road width, traf- fic speed, parking lane, etc.) and whether bikes are mixed with traffic, in bike lanes, or on separated paths. In 2014, DelDOT hired Dr. Peter Furth, one of the authors of the “Low-Stress Bicycling and Network Con- nectivity” report, to provide training in developing LTS 3 low-stress bike routes throughout the state. As part of Dr. Furth’s study, it is recommended that Del DOT evaluate specific low-stress bike routes in the City of Dover as an early action item resulting from this Plan update. Based on the MTI study, identifying low -stress bike route connections can dramatically in crease network connectivity and lead to measurable LTS 4 increases in bicycle usage, particularly for the 60% of the population that is interested in bicycling but con- cerned about safety. 31

Recommendations - Engineering Based on the existing bicycle network, the mix of land uses, and potential bicycling destinations, there are ample oppor- tunities to enhance bicycling as a mode of transportation in the City of Dover. This Plan provides recommendations that correspond with the 5 “E” categories of Engineering, Education, Encouragement, Enforcement, and Evaluation. The Engineering recommendations are prioritized based on need, as identified by the Bicycle/Pedestrian Subcommittee in the summer of 2014. The Subcommittee developed a priority system for road segments based on the criteria listed below. The intent of the prioritization is to develop projects that produce the highest number of bicycle trips. City of Dover Project Prioritization Criteria (On-Road Improvements): Criteria Description Traffic volumes High-volume roads rank higher Location Roads in the downtown or urban areas that facilitate more connections rank higher Existing bike facilities Roads that lacked shoulders, bike lanes, or off-road paths rank higher Alternate routes Roads that had no nearby alternate routes for cyclists rank higher Economic development Projects that could facilitate bicycle access to local businesses/services rank higher Vehicular speed Higher speed roads rank higher The Subcommittee also identified road segments that have a minimal level of bicycle facilities (typically shoulders or poorly-maintained off-road paths). These segments are not yet bicycle-friendly, but are not considered as hazardous as segments without any bicycle facilities. Some road segments without bicycle facilities were found to have a parallel low- stress street that can be used as an alternative route. These road segments are listed in the tables below and displayed on Figure 7. Road Segments with Minimal Bike Facilities Road Segments with Alternative Routes Road Limits Facility Road Limits Alternative Mifflin Road Hazlettville Road to Striped Division Street Weston Drive to Fulton Street Route 8 shoulder Kent Avenue Delaware Ave. Walker Road Pear Street to Ross Street Route 8 Saulsbury Road to Off road State Street Marsh Creek Lane path State Street Walker Road to Bradford St. North Street Railroad Tracks to Off road Water Street Schutte Park path Governors Legislative Hall to Bradford St. MLK Boulevard Legislative Hall to Off road Avenue U.S. 13 New Street U.S. 13 path Queen Street Kenton Road Chestnut Grove Road Striped Loockerman Chestnut Grove Road Bank Lane to Route 8 shoulder Street to Route 8 Reed Street Kent Avenue to Kings Highway Division Street U.S. 13 Loockerman Street 32

Recommendations - Engineering 33

Recommendations - Engineering Listed below is the prioritization ranking developed by the City’s Bicycle and Pedestrian Subcommittee, for on-road im- provements. Recommended off-road trails are also listed below. These projects are shown on Figure 9 (page 67). Recommended On-Road and Off-Road Projects to Improve Citywide Bicycle Use Rank Road Limits Recommended Solution 1 Route 8 Dover High School to Implement an east-west bike corridor, (Forrest Avenue/Division Street) South Edgehill Avenue the Senator Bikeway, as described in detail on pages 35 - 51 2 North State Street Walker Road to U.S. 13 Widen existing sidewalk to provide a shared use path 3 College Road McKee Road to Kenton Road Add shoulders to provide bike lanes and/or provide a shared use path 4 West Street North Street to Queen Street Widen shoulders to provide continuous bike lanes 5 Walker Road North State Street to Provide striped shoulders through Saulsbury Road travel lane re-striping 6 Saulsbury Road North Street to Route 8 Widen existing sidewalk on both sides to provide a shared use path 7 MLK Boulevard/ Babb Drive to U.S. 13 Widen existing sidewalk to provide South Little Creek Road a shared use path Recommended Off-Road Trail Projects Area Limits Recommended Solution Schutte Park Trail Schutte Park Continue the internal trail network throughout Schutte Park Fox Hall West to Route 8 Mallard Pond Park Provide a new trail within Mallard Pond Park St. Jones River (west side) Silver Lake Park to Provide a new trail on the west side of the St. Jones River Legislative Avenue North Street Trail Schutte Park to Resurface existing hot mix trail West Street 34

Recommendations - Engineering (On Road) The Senator Bikeway (#1 Ranked) The concept for the Senator Bikeway arose from the need for a centrally-placed east-west bike route through Dover that is low-stress and safe for riders of all ages and abilities. This is the #1 identified bicycling need in the community. Cur- rently Dover does not have a continuous east-west bike route at all. For automobile traffic, Route 8 serves this function, but, as detailed below, Route 8 presents challenges for east-west bicycle travel through central Dover. Route 8 (known as Forrest Avenue and Division Street) provides the primary east-west access in the City, connecting the western portion of Kent County with U.S. 13. Route 8 is classified as a minor arterial, and is designated as a Regional Bicycle Route on the DelDOT Bicycle Map. Between the western City limits and U.S. 13 (a distance of 3.4 miles), the typical roadway section varies considerably, ranging from a 6-lane section at Saulsbury Road to a 2-lane section in the downtown core. Route 8/Kent Avenue (looking east) Within a relatively short distance, Route 8 transitions from a high-speed, rural roadway to a low-speed, urban arterial. Based on the lack of shoulders throughout much of the corridor, the high traffic volumes (which exceed 18,000 vehicles per day west of Saulsbury Road), the presence of on-street parking in the downtown, and the lack of a consistent off- road path, Route 8 has conditions that are challenging for bicycle travel. At this point, creating on-road bicycle facilities would be very difficult, due to limited road widths and competing automobile traffic needs. The City is therefore explor- ing opportunities for a mix of off-road paths and parallel roads to create a continuous east-west bicycle route. Route 8 (looking east) Division Street/Queen Street (looking west) 35

Recommendations - Engineering (On Road) The Senator Bikeway (continued) The graphic below displays the bicycle infrastructure that currently exists along Route 8, as well as the areas that lack shoulders or bike lanes. In creating low-stress bike routes, experienced bicycle planners stress, again and again, that the most important step to take is to “help people cross busy roads.” Where a bike route crosses a road that has heavy automobile traffic, special measures need to be made to assist bicyclists in crossing. And while there may be a variety of ways to accomplish this in any particular situation, this step in the planning process must be given primary attention. In the plan for the Senator Bikeway, the proposed route crosses many busy roads, including Kenton Road, Saulsbury Road, and busiest of all, U.S. 13. Planners therefore must pay special attention to creating the means for bicyclists to safely cross these roads. The question to ask is “would a parent be comfortable allowing their 12-year old child to ride by themselves across these intersections?” There are a variety of enhancements that would be required to create a low-stress route for bicycling adjacent to Route 8, but the ultimate intent is to develop a safe, seamless route from east of U.S. 13 to Dover High School. The identified improvements that would be required to create this route, which would be known as the Senator Bikeway, are described in more detail on the following pages. The proposed improvements are shown in geographical order, traveling from west to east. 36

Recommendations - Engineering (On Road) The Senator Bikeway (continued) Dover High School to Mifflin Road Currently, the 0.3-mile section of Route 8 between Dover High School and Mifflin Road is a 2-lane section with shoulders that converts into a 4-lane section with no shoulders just west of the Route 8/Mifflin Road intersection. The shoulders function as designated right-turn lanes west of the Mifflin Road intersection. Along westbound Route 8, a shared-use path terminates near the Brandywine Court Apartments, and ties into a recently constructed 5-foot wide sidewalk as it heads west towards the east entrance of the high school. Along eastbound Route 8, as a result of the loss of shoulders, there are no bike facilities (either on-road or off-road) along this portion of the roadway, forcing bicyclists to share the road with motorists. Route 8/Mifflin Road (looking east) With the 2014 opening of the high school, there has been a noticeable increase in the volume of pedestrians and bicy- clists using Route 8 to and from the residential areas east of the school. The recent update of the Dover Pedestrian Plan has acknowledged the need to accommodate pedestrians walking to and from the school, as new sidewalk is being rec- ommended along the south side of Route 8 between the high school and Mifflin Road. In addition, the City Council has recognized the importance of providing a safe route for bicyclists and pedestrians to and from the high school, as new sidewalk construction along the south side of Route 8 is the #2 ranked project in the City’s 2014 transportation project prioritization list. It is recommended that a shared-use path be provided along the south side of Route 8, between the high school property and Mifflin Road. In addition, any properties that re-develop within these limits should be required to provide a 10-foot wide shared-use path along their frontage as part of the development approval process. Route 8 (looking west) Route 8 (looking east) Recommendation: Provide a shared-use path on the south side of Route 8 between Dover High School and Mifflin Road 37

Recommendations - Engineering (On Road) The Senator Bikeway (continued) Mifflin Road to Saulsbury Road Currently, the 1-mile section of Route 8 between Mifflin Road and Saulsbury Road is a 5-lane section that has no shoul- ders or bike lanes. At key intersections, the section becomes wider with the addition of turn lanes. There is a shared- use path along the north side of the road, while the south side of Route 8 has continuous 5-foot wide sidewalks but no shared-use pathway, as noted in the photos below. Route 8 (north side) Route 8 (south side) Based on the existing pavement width along Route 8, there are not any opportunities to reduce lane widths to provide for a bike lane. As a result, it is recommended that the existing sidewalk on the south side of Route 8 be widened to accommodate a 10-foot wide shared-use path. Most of the sidewalk appears to be located within the existing right-of- way. A sidewalk widening would likely involve utility relocations, drainage modifications, and stormwater management considerations, all of which would be evaluated during engineering design. Recommendations: Widen the existing sidewalk on the south side of Route 8 between Mifflin Road and Saulsbury Road to provide a shared-use path. Resurface the existing shared-use path along the north side of Route 8, between Marsh Creek Lane and Saulsbury Road. There are two major intersections located within these limits - Route 8/Kenton Road and Route 8/Saulsbury Road. Kenton Road Route 8 Route 8/Saulsbury Road (looking east) Route 8/Kenton Road 38

Recommendations - Engineering (On Road) The Senator Bikeway (continued) Mifflin Road to Saulsbury Road The Route 8/Saulsbury Road intersection has bike lanes on the Saulsbury Road approaches through the intersection, but there are no bike lanes along Route 8, so cyclists traveling eastbound or westbound must either share the road or use the sidewalks/pathways located along Route 8. There is a shared-use pathway that runs along the north side of Route 8. However, in front of the Walgreen’s store, the pathway shrinks to a 5-foot wide sidewalk along their entire frontage. Recommendation: Widen the existing sidewalk on the north side of Route 8 and west side of Saulsbury Road (in front of the Walgreens) to provide for a shared-use path As noted, the key to a successful bicycle boulevard is to provide safe crossings at primary intersections, such as the Route 8/Kenton Road and Route 8/Saulsbury Road intersections. Both of these locations have recently appeared in DelDOT’s Capital Transportation Program (CTP). In the most current draft, the FY 2016 - 2021 CTP, Kenton Road is listed with design funding being available in FY 2016. This project will add continuous sidewalks and consistent shoul- ders along Kenton Road, between Route 8 and Chestnut Grove Road. It is likely that bicycle improvements, such as bike lanes and enlarged right turn islands, will be implemented at the Route 8 intersection as part of that project. The draft CTP also shows design will start in FY 2019 for improvements to the Route 8/Saulsbury Road intersection. This safety project will add an additional through lane to Saulsbury Road. As part of its Complete Streets Policy, DelDOT is required to ensure that bicycle safety and mobility are incorporated into its intersection projects. As part of the design, DelDOT could potentially evaluate improvements such as enlarged right turn islands to ensure that bicycle safety is in- cluded as part of the proposed Route 8/Saulsbury Road widening project. 39

Recommendations - Engineering (On Road) The Senator Bikeway (continued) Saulsbury Road to West Street The City’s Bicycle and Pedestrian Subcommittee identified the segment of Route 8 between Saulsbury Road and West Street as their top priority need for bicycling, based on the prioritization criteria noted on page 32. This majority of this segment of Route 8 is a 5-lane section (2 through lanes in each direction and a center turn lane), with no shoulders and no bike lanes. The speed limit is 25 MPH, which increases to 35 MPH just east of Saulsbury Road. The land use along Route 8 in this area consists of a wide variety of uses, including residential, commercial, office, and institutional. Route 8 is one of the City’s primary commercial areas, particularly west of Saulsbury Road. There are 2 schools located between Saulsbury Road and Weston Drive, the William Henry Middle School and the Booker T. Wash- ington Elementary School. In addition, the Norfolk Southern railroad line runs north to south just east of Weston Drive. A primary benefit of improving bicycle mobility along this section of Route 8 is that it would connect west Dover neigh- borhoods and commercial areas with residential areas and commercial areas in the central portion of the city. Recognizing that widening Route 8 or reducing lane widths are not feasible options to provide on-road bike lanes, the Subcommittee recommended that a shared-use pathway be implemented along the north side of Route 8 between Saulsbury Road and Weston Drive. This improvement would provide a linkage to the existing off-road paths located along Route 8 and Saulsbury Road, as noted on page 36. There is currently sidewalk present throughout these limits. Along the frontage of the Booker T. Washington Elementary School, there appears to be sufficient room to provide for an 8- to 10-foot wide shared use path without significant property impacts. Route 8 (Looking West) Route 8 (Looking East) Recommendation: Provide a shared use path on the north side of Route 8 between Saulsbury Road and Weston Drive There are areas along the corridor (east of the school) where right-of-way impacts may affect the ability to provide a continuous shared-use path. An example is shown in the photo to the right. Should right-of-way impacts be deemed too extensive, accommodations for bike lanes could be made within the existing roadway. However, this would require the removal of on-street parking between Weston Drive and the railroad tracks. There are several small businesses located in this area, and any parking alterations would have to be discussed with the businesses as well as the City of Dover. Division Street (Near Ridgely Street) 40

Recommendations - Engineering (On Road) The Senator Bikeway (continued) Bicycle Boulevard Concept (Fulton Street, Delaware Avenue, Kent Avenue) Due to the difficulty in providing bike lanes within the existing roadway along Division Street (based on the significant use of on-street parking and lack of roadway width at the intersections), it is recommended that a “bicycle boulevard” be created on parallel streets to the north (Kent Avenue, Delaware Avenue, and Fulton Street). According to the Bicycle Boulevard Planning and Design Guide Book, published by Portland State University, “bicycle boulevards are low-volume and low-speed streets that have been optimized for bicycle travel through treatments such as traffic calming and traffic reduction, signage and pavement markings, and intersection crossing treatments. These treatments allow through movements for cyclists while discouraging similar through trips by nonlocal motorized traffic. Motor vehicle access to properties along the route is maintained.” Kent Avenue, Delaware Avenue, and Fulton Street are all very low-volume residential streets, with a posted speed limit of 25 MPH. As shown on the following page, Central Middle School and Wesley College are both located along the proposed bike boulevard. Based on the current roadway width, the low vol- umes, and the residential character of the streets, there may be little physical roadway improvements required to designate these 3 streets as a bicycle boulevard. Signing and sharrows would be required to guide cyclists to these streets. A sample artist rendering of bikeway signing is shown in the photo below. Delaware Avenue In order to tie the bicycle boulevard into the surrounding roadway network and create a lower-stress bike route, howev- er, improvements should be further evaluated throughout the local roadway system, including Division Street, Fulton Street and the Booker T. Washington Elementary School. Recommended improvements to these areas are detailed on the following pages. The portion of Fulton Street that runs through the Wesley College campus is closed to vehicular traffic, but allows for bike and pedestrian traffic, as shown in the photo below. The proposed bike boulevard would intersect two major north-south roads - Governors Avenue and State Street. These intersections would have to be further evaluated for additional safety improvements related to bike crossings of these routes. Recommendation: Implement a bike boulevard along Fulton Street, Delaware Avenue, and Kent Avenue, through signage, pavement markings, and intersection improvements Wesley College (looking west) Proposed Senator Bikeway Sign (Delaware Ave.) 41

Recommendations - Engineering (On Road) The Senator Bikeway (continued) Central Middle School t Av Ken Wesley College ue a re Aven w e. Dela West Bike Boulevard 8 t Route Stree eet n Str Fulto rn Gove Sta te ad e t venu Ra ilro Stree ors A Fulton Street/Norfolk Southern Railroad/West Street Fulton Street, part of the proposed bicycle boulevard, is traversed by the Norfolk Southern railroad, which runs north to south through the city. There are two potential options for continuing the Senator Bikeway west of the railroad:  Create a new bicycle/pedestrian-only crossing of the railroad, and continue the Bikeway west to the rear of the Booker T. Washington Elementary School and points west, as detailed on page 43. Extensive coordina- tion with Norfolk Southern would be required to obtain approval for an additional at-grade rail crossing, even if restricted to non-motorized uses.  Direct cyclists along West Street to Division Street. As noted on page 40, this would require either a widening of the existing sidewalk along the north side of Division Street to provide for a shared-use path, or a removal of on-street parking along both sides of Division Street. From West Street to the Booker T. Washington School, there are 8 businesses and homes on the north side of Division Street, while there are 7 businesses and homes on the south side, so extensive coordination would be required for any plan that involved removal of on-street parking. Fulton Street (looking west) Recommendation: Provide a bicycle/pedestrian-only crossing of the Norfolk Southern Railroad at Fulton Street 42

Recommendations - Engineering (On Road) The Senator Bikeway (continued) Booker T. Washington Elementary School The Booker T. Washington Elementary School is located along the north side of Route 8, between Carver Road and Weston Drive as shown on the map below. In order to provide a low-stress alternative to Route 8, a bike route should be developed through the school property to connect Fulton Street and Carver Road. The bike route could be aligned through the rear parking lot of the school, without the need for constructing additional paved surfaces. The rear parking lot serves as the primary parking area for the school, which includes school bus traffic. It is recommended that the City coordinate with the Capital School District to determine the feasibility of extending the Senator Bikeway into the Booker T. Washington school property, for an eventual tie-in to Carver Road and ultimately Saulsbury Road. Recommendation: Coordinate with the Capital School District to provide a bike route through the Booker T. Washington Elementary School, utilizing the existing parking lot Extension of Fulton Street The improved portion of Fulton Street currently terminates at Ridgely Street. In order to provide a continuous low-stress bike route, thus avoiding the challenges associated with Route 8, Fulton Street would have to be extended to Weston Drive, a distance of approximately 500 feet. Based on current tax maps, Fulton Street is an unimproved “paper” street for approximately 375 feet west of Ridgely Street. Right-of-way or an easement would have to be acquired from a private property owner on the east side of Weston Drive for the remaining 125 feet required to extend Fulton Street to Weston Weston Drive (looking east) Drive. The photo to the right shows the private property. Recommendation: Extend Fulton Street 500 feet to Weston Drive, to connect to the schools and provide a continuous bike boulevard north of Route 8 eet West Str William Henry New Rail Crossing Road Middle School Street Extension Saulsbury eet Bikeway Fulton Str Carver Road Street Ridgely Drive Weston Booker T. Washington Elem. School St reet Division 43

Recommendations - Engineering (On Road) The Senator Bikeway (continued) Saulsbury Road to Forest Street East of Saulsbury Road, Route 8 (Forrest Avenue) continues as a 5-lane roadway with no shoulders or bike lanes. Side- walks are present throughout the corridor on the south side of Forrest Avenue. However, based on the proximity of homes and potential right-of-way impacts, widening the sidewalk to provide for a 10-foot wide shared-use path is likely not a feasible option. South of Forrest Avenue, Lincoln Street is a parallel east-west street that provides access to Forest Street and Loockerman Street in downtown Dover. Lincoln Street is a residential, low-speed street with very low volumes. It does not connect, however, with Sauls- bury Road. As noted in the photo, Lincoln Street (as well as Bedford Street) terminates at the CVS Phar- macy property. There is currently a sidewalk con- necting Bedford Street to the CVS property, to facili- tate pedestrian access. In order to improve east- west bicycle mobility and provide an alternative route to Forrest Avenue between Saulsbury Road and downtown Dover, a new bicycle/pedestrian connec- tion through the CVS property should be evaluated. This would provide a direct low-stress connection from Saulsbury Road to the downtown, without hav- ing to travel along Route 8, which lacks adequate Lincoln Street at CVS Pharmacy bicycle facilities. Recommendation: Provide a bicycle/pedestrian connection from Lincoln Street to the CVS Pharmacy located at the southeast corner of Route 8 and Saulsbury Road Forrest Avenue CVS Bedford St. Saulsbury Road Provide Bike/Ped Connection F or To CVS Pharmacy est St r eet Lincoln Street 44

Recommendations - Engineering (On Road) The Senator Bikeway (continued) Kent Avenue to Park Drive Between Kent Avenue and Park Drive, Route 8 (Division Street) is about 37 feet wide. The road has enough width for the travel lanes and shoulders. At the St. Jones River bridge, the shoulder converts into a right turn lane in the east- bound direction, which forces bicyclists into the traveled way (see photo below). Division Street (looking east) Utility Bridge over the St. Jones River In order to provide a seamless Senator Bikeway in both the eastbound and westbound directions, a new bike/pedestrian bridge over the St. Jones River should be provided on the north side of Division Street. There is an existing utility bridge that could possibly be used and improved to facilitate this (see photo above). The existing dirt foot path that goes from the river to Division Street could also be improved into a formal, accessible pathway. Recommendation: Provide a new bicycle/pedestrian bridge over the St. Jones River on the north side of Division Street, as well as a shared-use path along the north side of Division Street (between the St. Jones River and Kent Avenue) Silver Lake Park Murphy School Provide New Trail Bridge venue Kent A New Trail Provide Shared Use Path t on Stree Divisi Park Drive 45

Recommendations - Engineering (On Road) The Senator Bikeway (continued) Park Drive to U.S. 13 Between Park Drive and U.S. 13, Route 8 (Division Street) is a 4 lane section with no shoulders or bike lanes. At the U.S. 13 intersection, the pavement width increases to include a right turn lane onto southbound U.S. 13. Based on the current road width and lane usage, there are no opportunities to provide a bike lane within the existing pavement. There is sidewalk located along both sides of Route 8. Given the potential for adverse impacts to the residential proper- ties located along the south side of Route 8, it is recommended that the sidewalk along the north side of the road be widened to provided for a shared-use path. There are 2 properties located on the north side of Route 8, an electric sub- station owned by the City of Dover and a former industrial plant owned by Playtex Manufacturing. The property located at the northwest corner of U.S. 13 and Division Street (former Playtex plant) is proposed for re- development, with commercial uses planned. The City Planning Commission granted site plan approval in April 2014. As of March 2015, the developer was working on submitting final plans as part of the development approval process. Should the project be too far along in the approval process, and the City not able to require a shared-use path on the north side of Division Street as part of the proposed re-development, the installation of a shared-use path would have to be funded as part of a future DelDOT project. Division Street (looking west) U.S. 13/Division Street (looking east) Recommendation: Provide a shared-use path on the north side of Division Street between Park Drive and U.S. 13 by widening the existing sidewalk 46

Recommendations - Engineering (On Road) The Senator Bikeway (continued) U.S. 13 to Edgehill Shopping Center East of U.S. 13, there are no bike lanes along Division Street between U.S. 13 and the entrance to the Edgehill Shopping Center. Based on the existing lane configurations, there is no opportunity to provide a bike lane along Division Street within the existing pavement width. There is a narrow shoulder along this portion of Division Street, with the exception of the westbound right turn lane approaching U.S. 13. There is a sidewalk on the north side of Division Street (along the CVS property) that could potentially be widened to provide for a shared-use path. This would provide a direct tie-in to any future shared-use path provided on the north side of Division Street west of U.S. 13. As shown in the graphic below, there are a variety of alleys and local streets that can provide low-stress bicycle connections from the major commercial centers (including the Division Street (looking west) Target and Safeway stores) to surrounding residences, without the need to use the heavily-traveled U.S. 13 (which also lacks bike lanes at Division Street). An example is highlighted in the aerial below, using a combination of a U.S. 13 ser- vice road, a low-speed road (East Loockerman Street) and an alley as an alternative to traveling along U.S. 13. Recommendation: Widen the existing sidewalk on the north side of Division Street between an unnamed alley east of CVS Pharmacy and U.S. 13, to provide a shared-use path et Str e io n is Div Alternate Bike Route Widen Sidewalk et tre anS rm cke oo s tL Ea 3 .1 U .S Service Road Target 47

Recommendations - Engineering (On Road) The Senator Bikeway (continued) U.S. 13 Crossings U.S. 13 is the primary north-south route within the City of Dover, as it provides access to the numerous commercial es- tablishments that are located along the roadway. At its intersection with Route 8, U.S. 13 is a 6-lane divided highway that carries an average of over 45,000 vehicles per day, which includes thousands of large commercial vehicles. In order to provide an effective and seamless Senator Bikeway, the crossing of U.S. 13 is a key component that must be evaluated to ensure that bicyclist mobility and safety are incorporated into any future bikeway improvements. There are 3 potential options for crossing U.S. 13: 1). U.S. 13/White Oak Road/Kings Highway 2). U.S. 13/Maple Parkway 3). U.S. 13/Route 8 The U.S. 13/White Oak Road/Kings Highway intersection does provide refuge islands for cyclists, has pedestrian signals, and has lower traffic volumes on the side streets than Route 8. However, there are no bike lanes provided on White Oak Road or Kings Highway. In addition, there are no shoulders along Kings Highway to access Silver Lake Park and points within the City, so shoulders would have to be provided, which would require extensive right-of-way acquisition. The U.S. 13/Maple Parkway intersection is an unsignalized intersection located between Division Street and White Oak Road. Providing a bike/pedestrian only connection here would require extensive modifications to U.S. 13, and due to the extremely heavy traffic volumes along U.S. 13, an unsignalized crossing would not be permitted by DelDOT. A sig- nalized crossing would have to be evaluated, which could potentially lead to significant vehicular queues along U.S. 13. It is recommended that the Route 8 intersection be the preferred location for providing a safe bicycle crossing of U.S. 13. This intersection has high traffic volumes and significant turning traffic. However, as noted on pages 46 and 47, this Plan recommends that the sidewalk on the north side of Division Street (on each road approaching U.S. 13) be wid- ened to provide a shared-use path as part of the Senator Bikeway concept. The U.S. 13/Route 8 intersection currently has pedestrian signals and crosswalks on 3 of the 4 intersection legs (though none on the northern leg). The median and right turn islands do not provide sufficient area for bicyclists, and would have to be improved to provide a safer ref- uge area for cyclists crossing U.S. 13. U.S. 13/Division Street (looking east) U.S. 13/Division Street (looking north) Recommendation: Provide improvements at the U.S. 13/Route 8 intersection (including wider refuge islands, pedestrian signals and crosswalks, and signal timing modifications) to facilitate a safe crossing for bicyclists 48

Recommendations - Engineering (On Road) The Senator Bikeway (continued) Based on conceptual level planning, the table below lists some of the improvements that would be required to fully im- plement the Senator Bikeway from U.S. 13 to Dover High School. These recommendations are also noted in the graphics on pages 50 and 51. Recommended Senator Bikeway Improvements Corridor Recommendation  Upgrade the sidewalk along the southeast corner of Route 8/Saulsbury Road (current CVS) to a shared-use path  Create a safe bike/pedestrian crossing of U.S. 13  Provide a shared use path along the northwest corner of U.S. 13/Route 8 (former Playtex property)  Create a safe bike/pedestrian crossing of Kings Highway at Route 8  Provide a new trail crossing over the St. Jones River  Create a safe bike/pedestrian crossing at Saulsbury Road (in both directions)  Upgrade the sidewalk along the northwest corner of Route 8/Saulsbury Road (current Walgreens) to a shared-use path Route 8  Resurface/repair the asphalt on the existing shared-use path along the north side of Route 8  Create a safe bike/pedestrian crossing of Kenton Road at Route 8  Install a shared-use path on the south side of Route 8, between Dover High School and Mifflin Road Optional:  Re-stripe Division Street near Kent Avenue to provide bike lanes  Widen the existing sidewalk along Booker T. Washington School to pro- vide a shared use path  Eliminate on-street parking between Weston Drive and the Railroad  Provide a new bike/ped crossing of the Norfolk Southern Railroad Fulton Street  Extend Fulton Street to Weston Drive  Provide bike lanes through the rear parking lot of the Booker T. Washington School 49

Recommendations - Engineering (On Road) 50

Recommendations - Engineering (On Road) 51

Recommendations - Engineering (On Road) North State Street (#2 Ranked) North State Street between Walker Road and U.S. 13 is a 4-lane undivided roadway that provides the only access over Silver Lake between downtown Dover and U.S. 13. The road, which carries over 14,000 vehicles per day, has a speed limit of 35 MPH. There are sidewalks throughout much of the corridor, with the exception of several properties near Lepore Drive. There are no shoulders or bike lanes along the roadway. A pavement width of about 45 feet accommo- dates the 4 travel lanes. Given the relatively high average daily traffic volumes, and the lack of additional pavement width, it is not feasible to re- allocate existing pavement width to accommodate a bicycle lane in each direction. The travel lanes are currently 11 feet wide, which is the DelDOT minimum for this roadway classification. A long-term solution would be to construct a new bridge for bicyclists and pedestrians over Silver Lake, which combined with widening the existing sidewalk to at least 8 feet, would provide for a separated off-road area for bicyclists, one that is currently non-existent. This would fulfill the need to provide a bicycle connection between downtown Dover and U.S. 13, alleviating the challenging conditions that currently exist. A shorter-term solution is to widen the existing sidewalks north and south of the Silver Lake Bridge to 8 feet, to provide for the minimum width required for a shared-use path. Due to its proximity to a side slope going into Silver Lake, this would likely require a retaining wall. There are currently 4-foot wide sidewalks that traverse the Silver Lake Bridge. This bridge is classified by DelDOT as a historic structure, and any modifications to the aesthetics or functionality of the existing structure are unlikely, so the 4-foot wide sidewalks would remain. Widening of the sidewalks would also require the removal of existing landscaping as well as potential utility relocations. Recommendation (short-term): Widen the existing sidewalks to provide a shared-use path Recommendation (long-term): Construct a new bridge over Silver Lake for bicyclists North State Street (looking south) North State Street (looking south) North State Street (looking north) North State Street (looking north) 52

Recommendations - Engineering (On Road) College Road (#3 Ranked) College Road is a 2-lane road that provides access from Kenton Road on the west side of Dover ultimately to U.S. 13. The portion of College Road between Kenton Road and McKee Road (0.8 mile) lacks continuous sidewalks, has no shoul- ders, and does not have bike lanes at any intersections. As a result, bicyclists must share the road with motor vehicles. The posted speed limit is 35 MPH, and traffic volumes average over 8,000 vehicles per day. College Road provides an important link between the western limits of Dover towards Delaware State University and U.S. 13. There are currently striped bike lanes on the eastern limits of College Road, between the University Garden apartment complex and U.S. 13. College Road (looking west) College Road at Delaware State University Recommendation: Provide continuous bike facilities on College Road from McKee Road to Kenton Road, by adding shoulders or a shared-use path Given the lack of bicycle (and pedestrian) amenities along this road, and the potential importance in providing improved transportation access to Delaware State University and the North Dover Elementary School, it is recommended that a College Road improvement project be initiated by DelDOT. In the 2011 MPO Regional Bicycle Plan, College Road was the 8th ranked project in Kent County. In addition, the Dover City Council included College Road as their #10-ranked project on their 2014 Transportation Project Prioritization list. The City’s Pedestrian Plan update, completed in 2014, also includes College Road as the 6th-ranked project in the City. College Road (looking west) College Road (looking west) 53

Recommendations - Engineering (On Road) South West Street (#4 Ranked) South West Street is a State-maintained road that connects North Street and Queen Street near downtown Dover, a dis- tance of about 0.4 mile. The land use along the west side of the corridor is dominated by the Norfolk Southern railroad. There are several businesses located near the West Street/Queen Street intersection. Along the east side, there are primarily government buildings or utility companies, including the J.P. Court, Chesapeake Utilities, and the Dover Police Department. The Dover Transit Center, which is the transit hub for all of DART’s Kent County routes, is located at the intersection of West Street, Water Street, and Queen Street. Fourteen local bus routes travel to and from the Transit Center every weekday, as well as several inter-county bus routes. The existing shared-use trail that runs along North Street from Schutte Park in the west, terminates at the railroad tracks just west of the West Street/North Street intersection, leaving bicyclists and pedestrians with no suitable route to proceed eastbound into downtown Dover. West Street has no shoulders and lacks sidewalks for most of its length. Sidewalks exist along the east side of the road between Bank Lane and Water Street, and along the perimeter of the Transit Center. Based on studies conducted by the MPO in 2013, West Street is heavily used by pedestrians walking from the downtown to the Transit Center. As a result of the MPO study, DelDOT is proposing to provide a 10-foot wide pathway between North Street and the Transit Center, constructing new sidewalk where it currently doesn’t exist (as shown in the photo below) and widening the existing sidewalk to provide for a shared-use facility. Bicyclists would be able to use the off- road path as well. Conceptual design has been completed on this section, however, there is currently no design funding programmed for these proposed improvements. Recommendation: Provide bike facilities on West Street from North Street to Queen Street, through a shared use path and/or through the addition of shoulders. West Street (looking north) West Street (looking south) West Street (looking north) West Street/Water Street (looking east) 54

Recommendations - Engineering (On Road) Walker Road (#5 Ranked) Walker Road between North State Street and Saulsbury Road is a 0.9-mile roadway that accommodates over 11,000 vehicles per day. Between North State Street and Silver Lake Boulevard, the roadway consists of a two-lane roadway section, with partially designated shoulders and no bike lanes through the intersections. The curb to curb width is about 35 feet (wider at the intersections). On-street parking is permitted on a portion of the south side of this section of Walk- er Road. Between Silver Lake Boulevard and Saulsbury Road, the typical section converts into a 3-lane roadway (2 thru lanes and a continuous center turn lane). There are minimal shoulders (less than 4 feet), no bike lanes, and no on-street parking in this section as well. The curb to curb width between Silver Lake Boulevard and Saulsbury Road is about 44 feet. Given the lack of available pavement width along Walker Road, there is not sufficient width to accommodate a continu- ous bicycle lane throughout the existing corridor. Between North State Street and Silver Lane Boulevard, there is likely enough pavement width to provide for a 4-foot wide bicycle lane in each direction. However, this would not provide bicycle lanes through the intersections of:  Walker Road/Silver Lake Boulevard/Carol Street  Walker Road/Pat Lynn Drive/Pear Street West of Silver Lake Boulevard, there may be an opportunity to reduce the lane widths slightly, to provide for a 4-foot wide shoulder. This improvement could be done through a future re-surfacing and/or re-striping project. Recommendation: Provide bike lanes on Walker Road from Saulsbury Road to North State Street, through pavement re-striping Walker Road (Looking East) Walker Road (Looking West) Walker Road (Looking East) Walker Road (Looking East) 55

Recommendations - Engineering (On Road) Saulsbury Road (#6 Ranked) Saulsbury Road (also designated as Delaware Route 15) is a major north-south route in the west part of Dover. Be- tween Route 8 and North Street, the road currently has average daily traffic volumes that exceed 18,000 vehicles per day, with volumes expected to increase once the West Dover Connector is completed in 2017. The surrounding land use consists of significant commercial uses (Gateway West shopping center, Royal Farms, several pharmacies), office space on the western side, and residential on the eastern side. Kraft Foods and Procter & Gamble, which are two large industries located along North Street, generate significant truck traffic that consistently utilizes Saulsbury Road. A small City-owned park is also located on the east side of the road. The typical roadway section along Saulsbury Road consists of a through lane in each direction, turn lanes at the intersections, and shoulders throughout the corridor (with the exception of the intersections with Route 8 and North Street). Saulsbury Road is designated as Bicycle Route 1 and is considered a Statewide Bicycle Route. Saulsbury Road is a vital connection for bicycle travel in this part of the City, as there are no other north-south connectors between Mifflin Road and downtown Dover. The road provides an important link between Route 8 bike routes (and points to the north) with the North Street bikeway (and points to the south). As noted in the graphic below, bike lanes and/or 8-foot wide shoul- ders are provided throughout the entire corridor in the northbound direction. However, in the southbound direction, bike lanes are not continuous and are not provided at the Saulsbury Road/Gateway Boulevard intersection or the Sauls- bury Road/North Street intersection. As shown below, a shared-use path is present along much of the east side of Saulsbury Road, with the exception of a portion adjacent to the Dover Housing Authority property. 56

Recommendations - Engineering (On Road) Saulsbury Road (continued) As noted on page 56, Saulsbury Road has several locations that present challenges to bicyclists - the intersections with Gateway Boulevard and North Street, neither of which have bicycle lanes in the southbound direction. Saulsbury Road/Gateway Boulevard Along southbound Saulsbury Road, the existing striped shoulder, which provides an area for bicyclists, converts into a right turn lane at the Gateway Boulevard intersection. As noted in the photo below on the left, there is no bike lane through this intersection in the southbound direction, forcing bicyclists to share space with motorists in both the through lane and the turn lane (as evidenced in the photo to the right). DelDOT’s Manual on Uniform Traffic Control Devices (MUTCD) does not permit striping a bike lane through a right turn lane unless there is space dedicated solely for bicy- clists. DelDOT, in conjunction with the University of Delaware, is currently evaluating several shared bike lane/right turn lane striping alternatives that could eventually be approved, to provide bike facilities through existing turn lanes. Saulsbury Road /Gateway Boulevard Saulsbury Road /Gateway Boulevard In order to facilitate bicycle travel in this important corridor, and eliminate the challenges that exist at the Saulsbury Road/Gateway Boulevard intersection, it is recommended that the existing sidewalk on the west side of Saulsbury Road be widened to provide a shared-use path between Route 8 and North Street. Five-foot wide sidewalk is present along the entire west side of Saulsbury Road. In addition, on the east side of Saulsbury Road, there is a shared-use path (8 to 10 feet wide) that covers nearly 75% of the corridor between Route 8 and North Street. It is recommended that approximately 550 feet of existing 5-foot wide sidewalk between Royal Farms and Saulsbury Road Park (adjacent to the Dover Housing Authority property) be widened to provide a continuous shared-use path on the east side of the road. Recommendation: Widen the existing sidewalk on both sides of Saulsbury Road from Route 8 to North Street, to provide a continuous 8-foot wide shared-use path Saulsbury Road (west side) Saulsbury Road (east side) 57

Recommendations - Engineering (On Road) Saulsbury Road (continued) Saulsbury Road/North Street Currently, there are no bike lanes on southbound Saulsbury Road at its intersection with North Street. The intersection currently consists of a through lane, a right turn lane, and a left turn lane in the southbound direction. Along north- bound Saulsbury Road, bike lanes were recently installed as part of the Royal Farms development. However, as noted in the photo below, the striping creates confusion for motorists and bicyclists alike. Bike lanes are also present in the westbound direction along North Street through the intersection. As previously noted, there is an existing bike trail lo- cated on the south side of North Street, which runs east to west through the Saulsbury Road intersection. Saulsbury Road (at Royal Farms) Saulsbury Road /North Street With the construction of the West Dover Connector (scheduled for completion in 2017), Saulsbury Road will be extended 3.2 miles to the south to connect with U.S. 13. The West Dover Connector will have extensive facilities for bicycle trav- el, including a shared-use path, shoulders, and bike lanes. It is anticipated that bicycle travel in the area will increase with the opening of this new road. As part of the West Dover Connector project, the Saulsbury Road/North Street intersection will have bike lanes through the intersection in both the northbound and southbound directions. Bike lanes will also be maintained along westbound North Street through the intersection as part of this project. The existing bike trail located on the south side of North Street will remain intact and continue to provide for bicycle mobility in the eastbound direction. The photos below show the existing conditions along Saulsbury Road in the northbound direction, as well as an artist rendering of the proposed configuration to be completed as part of the West Dover Connector. Saulsbury Road /North Street (existing) Saulsbury Road /North Street (proposed) 58

Recommendations - Engineering (On Road) MLK Boulevard/South Little Creek Road (#7 Ranked) Martin Luther King Boulevard/South Little Creek Road are two roads that compose a primary east-west route connecting the central part of Dover with residential and commercial areas on the eastern limits of the city. Between Babb Drive and U.S. 13, the roads cross Bay Road, one of the primary north-south routes in Kent County. Bay Road is the dividing line between the road names, as South Little Creek Road begins on the east side of Bay Road. In addition, U.S. 13, a major 4-lane highway, runs north to south within the limits. As noted in the photo below, the area is predominantly urban, with a wide variety of commercial land uses adjacent to the roads. These commercial uses include major traffic generators such as Safeway, Target, Royal Farms, and Wawa. MLK Boulevard also provides direct access to the government facilities located along the Legislative Mall area. Residen- tial areas are present on the east and west side of Babb Drive and U.S. 13, respectively. Road 2013 Traffic Volume U.S. 13 29,100 U.S. 13 Bay Road 27,300 Babb Drive South Little 1,190 Creek Road MLK Boulevard South Little Cr ee k Road MLK Blvd. 10,400 Ba y Source: 2013 DelDOT Traffic Summary ad Ro There is a bike lane on westbound South Little Creek Road, between Babb Drive and Bay Road. However, as noted in the photo below, there is currently no space available for bicyclists within the existing pavement between Bay Road and U.S. 13, either eastbound or westbound. In addition, there are no bicycle lanes on eastbound South Little Creek Road. Sidewalks are present throughout the corridor but are only 5 feet wide. The Capital City Trail, a 10-foot wide shared- use path, is located along U.S. 13 and MLK Boulevard and facilitates bicycle access into downtown Dover. However, the 0.2-mile stretch between Babb Drive and U.S. 13 provides a significant challenge for bicycle mobility from the areas east of Bay Road (including South Little Creek Road) to access this new trail. It is recommended that the existing sidewalk between Bay Road and U.S. 13 be widened to facilitate a 10-foot wide shared use path. Widening the sidewalk on either the north side or the south side of MLK Boulevard would be determined as part of the final design process, and would take into consid- eration such items as utilities, right-of-way, drainage, and con nectivity to other bike facilities in the area (such as the Capital City Trail and the bike lanes on South Little Creek Road). A 10- foot wide shared use pathway would facilitate 2-way bicycle traffic. MLK Boulevard (Looking West) Recommendation: Widen the existing sidewalk along MLK Boulevard between Bay Road and U.S. 13 to provide a shared-use path 59

Recommendations - Engineering (On Road) Listed below are the recommended on-road improvements, as developed by the Bicycle and Pedestrian Subcommittee. These projects are also shown on Figure 9. Recommended On-Road Projects to Improve Citywide Bicycle Use Rank Road Limits Recommended Solution 1 Route 8 Dover High School to Implement the “Senator Bikeway”, (Forrest Avenue/ South Edgehill Avenue through widening existing sidewalks, Division Street) creating new trail connections, providing a bicycle boulevard 2 North State Street Walker Road to U.S. 13 Widen existing sidewalk to provide a shared use path 3 College Road McKee Road to Kenton Road Add shoulders to provide bike lanes and/or provide a shared use path 4 West Street North Street to Queen Street Add shoulders and/or install a shared use path to provide continuous bike lanes 5 Walker Road North State Street to Provide bike lanes Saulsbury Road through re-striping 6 Saulsbury Road North Street to Route 8 Widen sidewalk on both sides to provide a shared use path 7 MLK Boulevard/ Babb Drive to U.S. 13 Widen sidewalks to provide a South Little Creek Road shared use path 60

Recommendations - Engineering (Planning Studies) Based on feedback received from the Bicycle and Pedestrian Subcommittee, there are several areas within the City that are recommended for future detailed planning studies. These areas are described in more detail below. New Burton Road New Burton Road is a 2-lane local road that provides direct access from Camden and Wyoming to Dover, a distance of nearly 2 miles. North of Webbs Lane, all of New Burton Road lies within City limits. South of Webbs Lane, only the west side of the road lies within the City’s boundaries. The Norfolk Southern Railroad lies on the west side of the road. In the northbound direction, New Burton Road has continuous shoulders throughout the entire City limits. However, in the southbound direction, there are no shoulders from Webbs Lane to north of Kesselring Avenue, forcing bicyclists to share the travel lane with motor vehicles in this 0.5-mile segment. New Burton Road (looking south) The proposed West Dover Connector will tie into Webbs Lane near New Burton Road. Once the West Dover Connector is completed in 2017, it is likely that there will be additional bicycle traffic along New Burton Road, as the new connector will provide significantly improved bicycle access to the west part of Dover. It is recommended that DelDOT Planning further evaluate potential improvements along New Burton Road, as it relates to the anticipated increase in bicycle vol- umes resulting from the West Dover Connector. An analysis of the speed limit along New Burton Road should also be included in the study, to determine if a speed limit reduction would make conditions more conducive for bicycling. The current speed limit is 45 MPH. Recommendation: Conduct a planning study of New Burton Road, to determine if additional improvements (such as shoulder installation and speed limit reduction) are warranted. Dover Downs Dover Downs hosts several large-scale events throughout the year at its facilities on the north side of Dover. NASCAR races are annually held in the late spring and early fall at Dover Downs, bringing between 70,000 and 80,000 fans to the event. The Firefly Music Festival, held at the Woodlands of Dover International Speedway, topped 85,000 attendees in 2014, with more anticipated in 2015. Finally, the initial Big Barrel Country Music Festival will be held in 2015, with an anticipated crowd of over 30,000 people expected to attend. These events bring a significant volume of pedestrian traffic along U.S. 13 and Leipsic Road in the vicinity of Dover Downs. There is also the potential for a large increase in bicycle travel along these routes, particularly for local resi- dents who want to use their bicycle to access the events as opposed to their car. The Subcommittee is recommending that DelDOT, Dover Downs, and the event organizers continue to ensure that bicy- cle travel is incorporated into the traffic and access plans developed for each event. The Subcommittee also wishes to encourage every effort to increase bicycle access to these events, through education and public awareness campaigns. 61

Recommendations - Engineering (Off Road) Schutte Park Trail Schutte Park, a City-owned park located at the intersection of Hazlettville Road/Mifflin Road/Wyoming Mill Road, is one of the Dover’s largest parks. The Schutte Park complex consists of several parcels of land, including 57 acres dedicated to active recreation, soccer fields, and 4 softball fields. In addition, the Dover Little League fields are located on the south end of the property, consisting of about 107 acres. The John Pitts Recreation Center, which provides indoor rec- reational and fitness facilities, is also located within the Park. A 10-foot wide concrete trail is located along the entire Hazlettville Road frontage of the Park. Along the park entrance road, the trail heads south for about 1/3 mile and terminates in a parking lot, as shown on the map below. In order to provide additional recreational and fitness opportunities for walkers and bicyclists, it is recommended that the City evaluate extending the existing trail network to the south. The trail network could be extended into the wooded areas of the park to provide a natural setting for area walkers, similar to the trail network that Kent County has success- fully installed at Brecknock Park in Camden. A soft surface (stone dust) could be used in the wooded areas. As of fall 2014, the City was in the process of updating its Parks and Recreation Plan, and it is recommended that the feasibility of a Schutte Park trail extension be evaluated as part of that Plan update. In the spring of 2014, the City initi- ated a topographic survey of the property to determine the potential for future park amenities such as additional trails. Recommendation: Extend the existing Schutte Park trail to the Dover Little League and around the perimeter of the Park, including the wooded areas of the Park Existing Trail Existing Trail Schutte Park Schutte Park Dover Little League 62

Recommendations - Engineering (Off Road) Fox Hall West/Mallard Pond/Route 8 Connector Fox Hall West and Mallard Pond are residential communities in the west part of Dover, comprising over 200 single-family lots. The communities only have access from Kenton Road. As shown on the map on the following page, Fox Hall West is only about 1/4 mile north of Route 8. However, the com- munity does not have vehicular or pedestrian access to Route 8, so all trips traveling to Route 8 must be made via Ken- ton Road. Due to the lack of sidewalks and shoulders along Kenton Road, it can be safely assumed that these trips are almost exclusively done with a motor vehicle, as opposed to walking or riding a bike. The new Dover High School, which opened in August 2014, is located along Route 8 in close proximity to these commu- nities. However, due to the lack of pedestrian access to Route 8, a trip from the southern end of Fox Hall West to the new school is 2.2 miles, traveling along Kenton Road. If there were direct pedestrian access to Route 8 though, this trip would be reduced to 0.8 mile. The City of Dover owns 2 parcels of land in between Route 8 and Fox Hall West, comprising 8.7 acres of open space (including Mallard Pond Park). It is recommended that the City of Dover evaluate the feasibility of constructing a bicy- cle/pedestrian trail connection from Fox Hall West (via Pebble Valley Drive) to Marsh Creek Lane, as a means of provid- ing a direct non-motorized connection to Route 8. A trail connection could also be made to an existing sidewalk that connects the Mallard Pond community with the Mallard Pond Park. Providing direct pedestrian access to Route 8 would eliminate vehicular trips along Kenton Road, provide additional recreational access for area residents, and improve ac- cess to the new high school. Marsh Creek Lane is just east of the HAWK pedestrian-activated traffic signal that was in- stalled in the summer of 2014. Marsh Creek Lane has sidewalks along its entire length. In July 2014, the City held a public workshop to discuss the proposed trail concept with neighboring residents. Recommendation: Construct a trail from Fox Hall West and Mallard Pond communities to Route 8, through Mallard Pond Park Mallard Pond Park (Existing) Mallard Pond Park (Proposed) Pebble Valley Drive (Existing) Pebble Valley Drive (Proposed) 63

Recommendations - Engineering (Off Road) Fox Hall West/Mallard Pond/Route 8 Connector (Continued) Ke nto nR oa d Fox Hall West Mallard Pond Proposed Trail 8 Dover High School Pebble Valley Drive Mallard Pond City of Dover Lands Mallard Pond Park Proposed Trail Marsh Creek Lane Route 8 64

Recommendations - Engineering (Off Road) North Street Trail The North Street Trail is an 8-foot wide, off-road facility that runs along the south side of North Street. The trail runs between Schutte Park and West Street, a distance of about 1.3 miles. The pathway ties into the existing trail network at Eden Hill Farm, including the Medical Center, and is used regularly by pedestrians, joggers, and bicyclists for recreation as well as transportation purposes. The pathway is adjacent to an industrial complex consisting of Kraft Foods and Proctor & Gamble, and is often used by employees for recreation. The North Street Trail will likely gain additional bicy- clist volumes in the future, as DelDOT is currently exploring ways to connect this facility with the recently-constructed Capital City Trail in downtown Dover. Given its location and the mixture of land uses that it connects, particularly the recreational opportunities afforded by Schutte Park, the North Street Trail could provide an important bicycling link in this part of Dover. However, the trail’s asphalt surface is currently in poor condition, and maintenance is non-existent. Based on the DelDOT Sidewalk and Mul- ti-Use Path Maintenance Policy, DelDOT is responsible for maintenance between West Street and the Proctor & Gamble facility (1.0 mile), as this portion lies within the State right-of-way. However, along the Proctor & Gamble frontage, the trail lies outside of the State right-of-way and maintenance would be the responsibility of the property owner (Proctor & Gamble). In order to further promote the use of this important bicycling connection between downtown Dover, the Eden Hill Farm community, and Schutte Park, it is recommended that the existing surface be re-paved, and trail signs installed. There are currently no signs that indicate the presence of a trail. This trail could also provide a multi-modal connection to the First State Heritage Trail, which consists of a variety of historic resources and destinations in downtown Dover. The artist renderings below show the current path with a new hot mix surface and decorative trail signs. Naming the trail would provide a sense of place and could potentially increase its use. An improved trail would also facilitate two- way bicycle travel, as westbound North Street lacks shoulders for much of its length and provides a challenging environ- ment for cyclists. Recommendation: Resurface the North Street trail from Schutte Park to West Street and add signage North Street Trail (Existing) North Street Trail (Proposed) North Street Trail (Existing) North Street Trail (Proposed) 65

Recommendations - Engineering (Off Road) St. Jones River Trail As part of the plan’s public involvement effort, the City of Dover’s Silver Lake Commission requested that a new trail be constructed on the west side of the St. Jones River, from Silver Lake Park to Legislative Avenue near the Dover Post Of- fice. This trail would provide recreational access to Silver Lake Park from a wide variety of uses in downtown Dover, including the Post Office, the Dover Library, the Department of Natural Resources and Environmental Control (DNREC) complex, and Fraizer’s restaurant. According to the Silver Lake Commission’s request, “the Commission seeks these trail improvements, predominantly from the standpoint of improving outdoor amenities within Silver Lake Park and along the St. Jones River though we are quite cognizant of the economic benefits it would provide downtown Dover and the health and quality of life benefits it would provide our residents and visitors.” As shown on the adjacent graphic, the trail would complete a loop network around the St. Jones River Silver Lake Park by connecting Silver Lake Park with the existing sidewalks near the Post Office, Library, and DNREC facilities. Sidewalks are currently located only on the east side of the St. Jones River, along Park Drive. Central Middle School Phase III of the Capital City Trail, completed in the fall of 2014, widened the existing sidewalks to provide for a 10-foot wide shared use path on the east side of the river. This proposal would require the acquisition of right-of-way from about 5 property owners. Environmental permits would likely be required due to its location within the floodplain eet and proximity to existing wetlands. io n Str In addition, a new mid-block trail Divis crossing of Division Street would have to be evaluated by DelDOT. Park Proposed Trail Driv e sla Legi t Stree Ave. n erma Dover Library tive Loock Recommendation: Provide a new trail on the west side of the St. Jones River between Silver Lake Park and Legislative Avenue 66

Recommendations Summary - Engineering 67

Recommendations - Education This community will undertake the following actions, once in each of the years indicated: 1. Classes: League-Certified Instructor Seminar 2015, 2018 Traffic Skills 101 2015, 2016, 2017, 2018, 2019, 2020 Traffic Skills 201 2016, 2018, 2020 The League-Certified Instructor (LCI) Seminar is not offered in any nearby state, so our offering will be advertised in all neighboring states, facilitating the development of bicycle education programs in other states as well as in our own. Members of our own community who complete the League-Certified Instructor Seminar will then be able to lead the Traffic Skills 101 classes that will be offered annually, and the Traffic Skills 201 classes that will be offered biannually. It is anticipated that DelDOT would be the host and sponsor of the classes, given the fact that they currently sponsor LCI classes. 2. Workshops: Bicycle Maintenance 2015, 2016, 2017, 2018, 2019, 2020 Bicycle Safety Workshop 2015, 2016, 2017, 2018, 2019, 2020 Multi-Sport Clinic 2015, 2016, 2017, 2018, 2019, 2020 The Bicycle Maintenance Workshops will be hosted by the partnership of two local businesses - Dave’s Road Bikes and Bike Werx Bike Shop. It is anticipated that the workshops will be 1 to 2 hours in length, with a nominal fee. The regis- tration will be coordinated through the City’s Parks and Recreation Department. 3. Educational Support: Support the Delaware Bicycle Council in having driver’s education programs include information on bicyclist’s right to use the road in Delaware, including the 3-foot passing law. Delaware Bicycle Safety Brochure League of American Bicyclists Safety Shirt 68

Recommendations - Encouragement This community will undertake the following actions to further encourage cycling awareness within the City: 1. Amish Country Bike Tour - Annually, first Saturday in September Over 2,000 cyclists participate in this event, which offers distances from 15 to 100 miles. The tour starts and ends at Legislative Mall in the center of Dover. The Tour is organized by Kent County Tourism, and the City of Dover provides assistance in the form of public safety, trash pickup, etc. 2. Ride of Silence - Annually, beginning in 2015, on Wednesday May 20, 2015 Inaugural ride will be one mile in length, through downtown Dover. The event will be organized by the City of Dover, and it is anticipated that the police department will assist with traffic management as required. 3. Capital City Trail Inaugural Ride - April 2015 This event celebrates the completion of the newly constructed multi-use path that runs through downtown Dover, con- necting Silver Lake Park with the St. Jones River Bikeway. 4. Bike Rack Contest - Spring 2015 The Subcommittee will solicit bike rack designs from schools throughout the state, for installation in the City. The Sub- committee will judge the design based on factors such as functionality, uniqueness, and constructability. 5. Mayor’s Bicycle & Fun Ride - Summer Hosted by our Mayor once a year, beginning in 2015, we encourage children and parents to ride their bikes with our Chief Executive in a procession that circles through Dover. 6. Bicycle Rodeo - Spring In conjunction with the YMCA, we host a minimum of 3 bike rodeos for kids, supporting them in developing their bicycle skills. It is anticipated that one will be held at the YMCA Swim Club and one at the Police Department. The City antici- pates holding the bike rodeos before the Ride of Silence, before the Capital City Trail Grand Opening, and prior to the Mayor’s Bike Ride. An additional rodeo could be held before one of the City’s Thursday Night Concerts on the Green. 7. DU - Dover - April 2016 This annual duathlon event, in which participants run and bicycle in a format similar to a triathlon, begins at a City park and winds its way throughout the streets of Dover. Capital City Trail Ribbon Cutting DelDOT Bicycle Rodeo 69

Recommendations - Enforcement The City of Dover Police Department currently has police officers patrolling on bicycles in the downtown area. It is strongly recommended that this presence be continued. In addition, the Bicycle & Pedestrian subcommittee strongly encourages the enforcement of existing traffic laws for both motorists and bicyclists. The subcommittee recommends that the City Planning Department, as well as members of the subcommittee, meet with the Dover Police Department to discuss potential enforcement issues and actions. These could include the following:  Ensure that the police officers are aware of the proposed 3-foot passing law  Use targeted information and enforcement to encourage motorists and cyclists to share the road safely  Use positive enforcement ticketing  Appoint a law-enforcement contact person to interact with the local bicycling community 70

Recommendations - Evaluation & Planning To determine the usage of bike facilities in Dover, and to monitor the growth in popularity of bicycling as a mode of transportation, the following actions will be undertaken: 1. Using a pedestrian/bicycle counter, monitor use of the following off-road trails, at least once every season (4 times a year): A. Capital City Trail B. Isaac’s Branch of the St. Jones River Trail C. North Street bike trail D. Route 8 shared-use trail 2. Make live counts of cyclists using: A. The new Senator Bikeway and bicycle boulevard B. State Street C. Loockerman Street D. South Governors Avenue Bicycle Counter Loop To continue with the progress and development of our Bicycle-Friendly Community, we will take the following actions:  Update the Bicycle Plan every five years. The next update will be published in 2020, thus the production of that update will begin no later than the beginning of 2019.  Incorporate this Bicycle Plan into the City of Dover Comprehensive Plan.  Continue to hold monthly public meetings of the Bicycle and Pedestrian Subcommittee to assess conditions and address problems pertaining to bicycling in our community. In late 2014, the City of Dover received an active living grant from Nemours, to provide additional bike racks throughout the City. It is anticipated that the additional bike racks will be installed near Loockerman Street and State Street in the downtown. It is recommended that the usage of the bike racks be monitored as part of the Evaluation component of this Bicycle Plan. DelDOT has installed bicycle counters on several trail projects throughout the state, and in 2014 in- stalled a bicycle/pedestrian counter as part of Phase II of the Capital City Trail project, as shown in the photo to the left. Bicycle/Pedestrian Counter 71

Public Involvement The City of Dover’s Bicycle Plan was discussed and presented at the following public meetings: Bicycle and Pedestrian Subcommittee February 11, 2014 October 7, 2014 March 3, 2015 April 1, 2014 November 4, 2014 July 1, 2014 December 9, 2014 August 12, 2014 January 20, 2015 September 2, 2014 February 3, 2015 Public Workshops June 26, 2014 - At the initial Public Workshop, held at the Dover Library, information regarding existing conditions/ facilities and identified pedestrian needs was presented to the public. Attendees were given the opportunity through a mapping exercise, questionnaires, and public comment forms to identify specific pedestrian needs and potential im- provements throughout the City. Representatives from the City of Dover, DelDOT, and the MPO provided staff assis- tance. January 20, 2015 - At the second Public Workshop, held at the Pitts Recreation Center, the final recommendations from the Plan were presented to the public. Attendees were given the opportunity to provide comments on the final recom- mendations, as well as identify additional pedestrian needs and potential improvements. Representatives from the City, DelDOT, and the MPO provided staff assistance. Safety Advisory and Transportation Committee City Council 72

Acknowledgements The City of Dover Bicycle Plan was developed by the following individuals: City of Dover Bicycle and Pedestrian Subcommittee Jim Hutchinson Chris Asay Patrick Gallagher Jayce Lesniewski Kathy Doyle David Moses Tim Slavin City of Dover Planning and Parks & Recreation Department Ann Marie Townshend Carolyn Courtney William Cook Delaware Department of Transportation Anthony Aglio Sarah Coakley Dover/Kent County Metropolitan Planning Organization Rich Vetter Chris Kirby Jim Galvin Kate Layton Endorsed by the Safety and Advisory Transportation Committee on March 23, 2015 Approved by the Dover City Council on April 13, 2015 The preparation of this document was financed in part with funds provided by the Federal Government, including the Federal Transit Administration and the Federal Highway Administration of the United States Department of Transporta- tion. 73

Table of Contents Page Introduction 1 Goals and Objectives 2 Benefits of Walking 3 Accomplishments 4 Existing Conditions Facilities 5 Land Use 7 Crash Analysis 9 Existing Plans, Policies, and Programs 11 Maintenance 22 Planned DelDOT Projects 24 Areas of Opportunity 26 Pedestrian Needs 27 Recommendations New Sidewalks and Trails 29 Pedestrian Signals 44 Maintenance 45 Signing, Striping, Lighting, Fencing 48 Delaware State University 54 Summary of Recommendations 55 Public Involvement 59 Acknowledgements 60

Introduction The City of Dover Pedestrian Plan is the product of a planning process that was initiated by public interest and support. The City of Dover, Delaware has had a long interest in promoting safe and convenient transportation alternatives such as walking and biking. In 1997, the City developed its first Bicycle and Pedestrian Transportation Plan, which was incor- porated into the City's Comprehensive Plan. Through extensive public involvement, this initial plan provided an assess- ment of existing conditions for biking and walking in the City, as well as developed specific recommendations, an imple- mentation strategy, and potential funding sources. Since the adoption of the first plan, there have been numerous changes in the way that walking is viewed as a mode of transportation. Walking has taken on a new level of importance at the Federal, State and local levels, as transportation agencies have realized the effectiveness of this mode as an alternative to the use of a motor vehicle. In addition to the transportation benefits, walking provides measurable health, quality of life, environmental, and economic benefits to the local community. The graphic on page 3 describes these benefits in more detail. The benefits of walking have been recognized by the U.S. Department of Transportation through the creation of funding sources dedicated to transportation alternatives (such as the original Transportation Enhancement Program, now includ- ed in the Transportation Alternatives Program). In addition, the Delaware Department of Transportation (DelDOT) has recognized the importance of walking as a transportation mode, and in 2009 established a full-time Pedestrian Coordina- tor position to ensure that pedestrian needs are incorporated into DelDOT projects throughout the state. In the current City of Dover 2008 Comprehensive Plan, existing conditions for walking are described in the Transporta- tion chapter. In addition, pedestrian needs are identified in the Comprehensive Plan. The report indicated that 68% of the public workshop respondents believed there are an insufficient number of sidewalks within the City, and a higher number felt that more pedestrian paths should be built. In addition, the Comprehensive Plan established specific recommendations for developing and expanding alternate modes of transportation. These recommendations are:  Update and implement the Bicycle and Pedestrian Transportation Plan of 1997  Review the bicycle and pedestrian transportation network to identify gaps and important segments needed to provide a continuous network  Develop an implementation plan to complete this network The Comprehensive Plan also declares "support for pedestrian, bikeway, and public transit facilities in subdivisions and site plan applications." Finally, the Comprehensive Plan notes that "the City of Dover is committed to working with the Dover/Kent County Met- ropolitan Planning Organization (MPO) to reduce the air quality impact of auto emissions through sound land use plan- ning, enhancing the bicycle and pedestrian network in Dover, and encouraging increased use of public transit." Specific recommendations relating to clean air goals identified in the Comprehensive Plan are:  Update and implement the Bicycle and Pedestrian Transportation Plan of 1997  Encourage and support the installation of multi-modal paths alongside street frontages where appropriate  Improve and widen sidewalks for bicycle and pedestrian use  Encourage DelDOT to increase bicycle paths along major routes within the City 1

Goals and Objectives The City of Dover Bicycle and Pedestrian Subcommittee has established the following goals and objectives as part of the update to the Pedestrian Plan: Vision - "Dover is a place where people of all ages and abilities can walk conveniently, comfortably and safely for all pur- poses." Goal 1 - Improve the pedestrian transportation network  Consider needs of all user groups  Identify key gaps in the network, and areas of safety concern  Develop project ideas for gaps where solutions are not immediately obvious. Seek the advice of creative and experienced professionals.  Prioritize project requests and advocate for funding  Track projects from planning through completion Goal 2 - Incorporate pedestrian elements into land-use and development planning Goal 3 - Provide for routine and timely maintenance (cleaning and clearing) of walkways, especially after snowfalls and rainfalls  Establish maintenance responsibilities, and coordinate actions (city, state, private)  Educate road snowplow operators, to eliminate blockage of walkways  Actively provide notice and citations to property owners  Integrate sidewalk maintenance (snow, debris, and vegetation removal) into routine actions of City street crews Goal 4 - Provide physical maintenance of walkways  Replacement of damaged or root-lifted concrete, blacktop, or brickwork  Restriping of crosswalks and other painted markers Loockerman Plaza Capital City Trail (U.S. 13) 2

Benefits of Walking As noted below, walking provides a multitude of low-cost benefits to a community. Transportation Provide choices Reduce congestion Affordable solutions Health Environment Support active life- Support smart styles Walking growth Provides recreation Improve air quality Reduce obesity Improve access to natural areas Economic Supports local businesses Attracts new growth Increase tourism Source: Adapted from 2009 Maryland Trails: Strategic Implementation Plan 3

Accomplishments Since 1997, the City of Dover and DelDOT have made great strides in creating a more pedestrian-friendly city. Listed below are examples of some of the accomplishments that have occurred since the previous Plan adoption:  Construction of new trail systems within Silver Lake Park and Schutte Park (early 2000’s)  Establishing a Traditional Neighborhood Design (TND) zoning category (2004)  Construction of the Isaac Branch Trail, part of the St. Jones River Greenway (2007)  Incorporating pedestrian signals and crosswalks as part of DelDOT’s Dover Signalization Improvements project along major routes such as Division Street, North Street, and West Loockerman Street (2007)  Enhancing pedestrian access to Booker T. Washington and Towne Point Elementary Schools, and William Henry and Central Middle Schools, through the Safe Routes to School program (2010 and 2011)  Closing portions of Fulton and Cecil Streets to vehicular traffic to improve the pedestrian environment for Wesley College students (2012)  Establishing a Bicycle and Pedestrian Subcommittee (2013)  Enhancing pedestrian access along North Street, through a DelDOT streetscape project (2013)  Completion of Phase I and Phase II of the Capital City Trail (2013 and 2014)  Sidewalk/crosswalk construction and HAWK signal installation along Route 8 near the new Dover High School (2014) Capital City Trail North Street Streetscape Silver Lake Park Wesley College Streetscape 4

Existing Conditions - Pedestrian Facilities As part of the update to the Bicycle and Pedestrian Plan, an inventory of existing pedestrian facilities within City limits was conducted. The inventory evaluated the following components:  Off-road trails and pathways  Sidewalks  Pedestrian signals and crosswalks  Pedestrian generators and attractors Figure 1 displays the results of the inventory. Listed below is a summary of the key findings from the pedestrian facility inventory:  There are approximately 9.0 centerline miles of off-road trails and pathways within the City.  There are over 18 miles of sidewalk gaps along State-maintained roads within the City.  There are 78 traffic signals within the City limits. Thirteen of these traffic signals (15%) do not have pedestrian signals and/or crosswalks. These signals are listed below and are mapped on Figure 1.  The City has numerous areas of potentially high pedestrian use, based on adjacent land use, population density, and proximity to pedestrian attractors/generators. Signalized Intersections Without Pedestrian Signals U.S. 13/Scarborough Road U.S. 13/Delaware State University Commons U.S. 13/Bay Road U.S. 13/Roosevelt Avenue U.S. 13/South State Street U.S. 13/Puncheon Run Connector U.S. 13/Webbs Lane U.S. 13/Webbs Lane South State Street/Webbs Lane Governors Avenue/State Street/Walker Road Kenton Road/Walker Road Kenton Road/College Road Kenton Road/Denneys Road McKee Road/Denneys Road Governors Avenue/State Street/Walker Road 5

Existing Conditions - Pedestrian Facilities 6

Existing Conditions - Land Use The City of Dover has a diverse mixture of land uses within its 22.7 square mile area. The City, with an estimated 2012 population of 37,090, has the second largest municipal population in Delaware. Dover is also the largest municipality in the state in terms of land area. Based on data provided by the City of Dover Planning Department, listed below is a breakdown of the land uses within the City limits, as of 2013. Existing land uses are also shown on Figure 2. Residential Land Use Category Amount As noted in the table, the predominant land use within City limits is active Agriculture/Open Space 38.5% agriculture and open space such as wetlands, wooded areas and vacant Residential 19.1% land. However, residential land use is also a primary land use. High density residential is located in the downtown core (roughly a 2 square mile area), Dover Air Force Base 18.0% while lower density, single-family residential land use composes the majority Other 17.4% of the land use in the surrounding suburbs. Institutional 8.7% Commercial Commercial 8.3% U.S. 13 is by far the primary commercial corridor throughout the entire City limits, as well as the Kent County region. This roadway facilitates a wide variety of traditional highway commercial uses, ranging from offices to restaurants to regional malls (Dover Mall). Other corridors with a high concentration of commercial uses include Bay Road, Route 8 (west of Saulsbury Road), and Loockerman Street in downtown Dover. Educational There are 4 universities and college within City limits - Delaware State University, Wilmington University, Delaware Technical and Community College, and Wesley College. In addition, there are 11 public schools in the City of Dover, 8 of which are elementary schools. Finally, there are several private school facilities located in Dover. Delaware State University Institutional The State of Delaware owns a variety of government buildings in Dover, including Legislative Hall, the State Archives, and the Kent County Courthouse. The downtown area also houses City Hall, a new library, the regional hospital, several museums, a vibrant historic district, and the Kent County transit hub. Open Space/Parks There are 24 City-maintained parks in Dover. Most of these are small parks located within subdivisions or on small lots in the downtown. There are several parks that are able to provide active recreational opportunities for large numbers of residents, including Schutte Park, Silver Lake Park, and Dover Park. In addition, The Green was recently incorporated into the National Park System as a National Monument. The Green 7

Existing Conditions - Land Use DAFB 8

Pedestrian Crash Analysis As part of the assessment of pedestrian conditions within the City, crash data from 2011 to 2013 was analyzed to deter- mine the number and severity of pedestrian crashes that occurred during the 3-year period. In addition, the analysis was used to determine if there were any concentrated areas of pedestrian crashes, in an effort to identify future engi- neering or enforcement solutions that could potentially address the crash history. Figure 3 shows the location of all reported pedestrian crashes that occurred within City limits from 2011 to 2013, as compiled by the City of Dover Police Department. Listed below is a summary of the crash data:  There were 39 reported crashes involving a pedestrian between 2011 and 2013. Year Crashes  Personal injuries were involved in 32 crashes (82%). 2011 16  There were no fatal crashes reported during the 3 year period. 2012 13  Twelve of the crashes (31%) occurred along U.S. 13 or at an intersection 2013 10 with U.S. 13.  As noted in the chart below, the majority of the crashes (17) occurred between noon and 6:00 PM.  The majority of the crashes (22) occurred on or near roads with a speed limit of 35 MPH or greater.  Pedestrian crashes have decreased 37% over the last 3 years. Midnight to 6:00 8% AM 26% 23% 6:00 AM to Noon 43% Noon to 6:00 PM 6:00 PM to Midnight Pedestrian Crashes - Time of Day South New Street/Water Street As shown on Figure 3, there were 5 pedestrian crashes reported along U.S. 13 between the former Sheraton Hotel and the north entrance to the Dover Mall. Despite the cluster of crashes reported in this 0.5-mile segment, this would likely not warrant further study, as many similar roads throughout the State (including Kirkwood Highway, Route 273, and Route 40) have pedestrian crash rates much higher than this segment of U.S. 13. The highest concentration of pedestrian crashes occurred along South State Street at the existing pedestrian crossing between Bayhealth Hospital (on the west side of the road) and the related medical facilities on the east side (adjacent to Holy Cross Church). Three pedestrian crashes were reported at this location between 2011 and 2013. South State Street at Bayhealth 9

Pedestrian Crash Analysis 10

Existing Plans, Policies, and Programs City of Dover Bicycle and Pedestrian Transportation Plan As noted, the City of Dover’s current Bicycle and Pedestrian Plan was adopted in 1997. The Plan details engineering, education, encouragement, and enforcement goals as they relate to biking and walking. The Plan presents a detailed assessment of specific pedestrian needs throughout the City of Dover, based on a rating system of land use and trans- portation conditions. In addition, the Plan details potential pedestrian needs based upon a Pedestrian Index evaluation. The Plan also identifies short-term and long-term actions designed to make the City of Dover more bicycle and pedestri- an friendly. The top ten recommended projects are listed below, with an accompanying status. Project Status 1. Schutte Park Off-Road Connection Not implemented 2. New Burton Road Pedestrian Crossing Not implemented 3. Path between Del Tech and Del State To be accommodated by Crawford Carroll Road Extension 4. Sidewalk Inventory/Spot Improvements To be completed as part of current Bicycle and Pedestrian Plan update 5. Establish Gateway Treatments Not implemented 6. Designate Commercial Corridors Incorporated in DelDOT’s Complete Streets Policy 7. Walker Road Bike/Ped Improvements Partially implemented 8. Improve Delaware Bicycle Route 1 Not implemented 9. Establish Dover Area Greenways Not implemented 10. Mifflin Road/Hazlettville Road Partially implemented The 1997 Plan identified a variety of roads in the City that did not have sidewalks or had sidewalk gaps. However, since 1997, numerous road segments have had sidewalks installed. A status of sidewalks along some of the major roads is provided below. The percentage refers to the approximate amount of sidewalks that existed for each time period. Sidewalk Percentage Comparison Road 1997 Status 2014 Status U.S. 13 3% 78% Walker Road 55% 100% College Road 18% 48% North Street 27% 100% South Governors Avenue 33% 100% South Little Creek Road 32% 64% New Sidewalk on U.S. 13 11

Existing Plans, Policies, and Programs City of Dover Code of Ordinances The City of Dover’s Code of Ordinances includes numerous requirements that ensure Dover will continue to be a pedes- trian-friendly community well into the future. The City requires developers to install sidewalks for all new major subdivi- sions. The Code includes design specifications for sidewalks, which refer to material, width and general location. In addition, the Code requires property owners to maintain sidewalk that is adjacent to their property, as explained in more detail on page 23. In an effort to enhance and promote walkable communities, the City has two additional categories that provide develop- ers with flexibility and incentives to address pedestrian needs through land use design. The categories are the Corridor Overlay Zone and the Traditional Neighborhood Design (TND), a zoning designation. The City of Dover has established a Corridor Overlay Zone along two roads in the northwestern part of the City:  Route 8 (Railroad tracks to western City limits)  McKee Road/Saulsbury Road (Denneys Road to North Street) The Corridor Overlay Zone has several primary purposes:  Promote superior urban design  Foster connections among adjacent properties  Preserve the function and efficiency of the roadway  Achieve a balanced streetscape which is friendly to the pedestrian and motorist alike By Code reference, superior urban design includes “transportation amenities for bicycles, pedestrians, and transit that exceed those required by the zoning ordinance.” As stated in the Code, “the intent of the TND zone is to create a walkable and pedestrian-friendly, economically viable professional, commercial and mixed use residential neighborhood for people of different ages and incomes that draw from the best architectural and community design features of Delaware and the Delmarva Peninsula from its colonial past to the mid 20th century. Its intent is also to preserve and enhance the natural landscape, celebrate the history of the site, and buffer the development from adverse external influences.” “It may provide locations for other uses that will aid in the fulfillment of the City of Dover's Comprehensive Plan and allow people to live near their work. The design of the streets shall form a connected system with dimensions and speeds reasonable to serve the development, but also to create an environment that is friendly to pedestrians and bicycle riders.” One of the first communities being developed under the TND zoning category is the Eden Hill Farm, a 265-acre mixed use development along North Street. The community, which is currently under construction, provides a mixture of commercial, residential, institutional, and open space located in close proximity to each other. The land use, combined with wide sidewalks, interconnections, and an internal trail network, creates a true walkable new community in the heart of Dover. 12

Existing Plans, Policies, and Programs First State Trails and Pathways Initiative The First State Trails and Pathways Initiative is a program managed by the State of Delaware whose primary goal is to “create a world-class statewide network of pathways and trails for Delaware’s citizens and visitors, to promote biking, hiking, walking, and active living.” The Initiative is managed in partnership by DelDOT and the Department of Natural Resources and Environmental Control (DNREC). The program was initiated in 2012 by Governor Jack Markell, in an effort to address the following goals:  Establish Delaware as a Top Ten Bicycle Friendly State (as designated by the League of American Bicyclists).  Support the creation of jobs resulting from investments in biking and walking  Create/expand community connections  Create healthy and active communities  Provide safe, affordable transportation and recreational choices  Incorporate environmentally-friendly practices into trail projects In Fiscal Years 2012 and 2013, the State of Delaware allocated $20 million towards this program. Since the program was initiated, numerous trails and pathways projects have been planned, designed, and constructed throughout the state. In addition, Delaware has improved its ranking as a Bicycle Friendly State, jumping from a national ranking of #10 in 2012 to #4 in 2014. Delaware is designated by the League of American Bicyclists as the most Bicycle Friendly State east of the Mississippi River. The City of Dover has been a direct beneficiary of the First State Trails and Pathways Program, as evidenced by the completion of Phase I of the Capital City Trail in 2013. Phases II and III are proposed for completion by the end of 2014. As noted on the map below, the Capital City Trail is a shared-use pathway that provides a direct connection from Silver Lake Park to the Isaac Branch Trail (a 2.6-mile greenway that connects U.S. 13 and Route 10). The Capital City Trail is being completed through a combination of widening existing sidewalks and installing new pathways to create an important pedestrian and biking facility in the heart of downtown Dover. The Capital City Trail also provides an en- hanced gateway into the Legislative Hall complex, as well as improves pedestrian and bicycle safety along East Loocker- man Street and MLK Boulevard. Capital City Trail 13

Existing Plans, Policies, and Programs DelDOT Complete Streets Policy Within the City of Dover, the Department of Transportation is responsible for the maintenance of all State roads within City limits. These include arterial routes such as U.S. 13, U.S. 13A (Governors Avenue), Delaware Route 8, Delaware Route 15, and State Street. Collector routes such as White Oak Road, New Burton Road, and Walker Road are also maintained by DelDOT. The vast majority of the roads in the City of Dover are maintained by the State. The City of Dover provides maintenance responsibilities for all City streets. Examples of City-maintained streets primari- ly include streets in the urban downtown core, such as Bradford Street and Kirkwood Street. In 2010, DelDOT adopted its Complete Streets Policy. As noted in the Policy, “the term Complete Street means a road- way that accommodates all travelers, particularly public transit users, bicyclists, pedestrians, and motorists, to enable all travelers to use the roadway safely and efficiently.” The purpose of the Complete Streets Policy is “to ensure that the DelDOT system modifications are routinely planned, designed, constructed, operated, and maintained in a way that ena- bles safe and efficient access for all users. The result should be a system for all users that is comprehensive, integrated, connected, safe, and efficient allowing users to choose among different transportation modes, both motorized and non- motorized.” A primary objective of the Policy is “to define and implement changes to the project development process that will value all transportation modes during the project scoping phase and enhance currently used design practices through updates to DelDOT subdivision and design manuals, design memoranda, and policies.” The DelDOT Complete Streets Policy indicates that “all projects in the state right-of-way that are considered road recon- struction, widens the pavement width, or allows for the inclusion of facilities for all users, shall consider all transporta- tion modes and accommodate accordingly.” Since its adoption, DelDOT has incorporated elements of the Complete Streets Policy into several projects in Dover, in- cluding the South Governors Avenue improvement project, which provided continuous 5-foot sidewalk throughout the project limits (Water Street to Webbs Lane). As part of the Capital City Trail project that was completed in 2014, DelDOT also widened existing sidewalk in heavily-used pedestrian areas to provide a 10-foot wide shared use pathway, enhancing pedestrian and bike mobility in the downtown area. In addition, DelDOT is including a 10-foot wide shared use path into the design of the West Dover Connector, a 3.2-mile long new roadway that will provide a direct connection between Saulsbury Road and U.S. 13. This project will also add sidewalks in the more urban typical section near Rodney Village, which is just south of the City limits. The project will significantly improve pedestrian access from the south part of Dover (as well as Brecknock Park in Camden) to west Do- ver, including Schutte Park and the existing path along Saulsbury Road. Proposed Typical Section - West Dover Connector 14

Existing Plans, Policies, and Programs DelDOT Statewide Pedestrian Action Plan In 2007, DelDOT adopted the Delaware Statewide Pedestrian Action Plan. The Plan was initiated as the result of Execu- tive Order 83, signed by Governor Ruth Ann Minner in March 2006. Executive Order 83 stated that an Advisory Council on Pedestrian Awareness and Walkability be established to assist DelDOT in developing and implementing a Statewide Pedestrian Action Plan. Per the Executive Order, the Plan was to address the following issues:  Ensuring that paths and sidewalks are continuous and interconnected where feasible  Developing consistent design standards for crosswalks, sidewalks, and pathways  Clarifying maintenance responsibilities for sidewalks  Reviewing traffic rules and driver behavior to help support a safer pedestrian environment  Promoting land use and traffic patterns that encourage walking and reduce air pollution The adopted Delaware State Pedestrian Action Plan, which can be found on the DelDOT web site at http://deldot.gov/ information/projects/bike_and_ped/delaware_ped/, includes the following key components:  Description of the importance of walking and pedestrian facilities  Identification of issues and concerns for pedestrians  Inventory of Federal, State, and local policies, regulations, and practices relating to pedestrians  Recommended actions Based on the Pedestrian Action Plan, DelDOT conducted a comprehensive sidewalk inventory in 2012 and is in the final stages of completing its ADA Transition Plan. It is anticipated that an open end design agreement and an open end construction contract will be procured to facilitate completion of standalone pedestrian projects that implement the Transition Plan. In the DelDOT FY 2015 - 2020 Capital Transportation Program (July 2014), the Department is propos- ing to spend $7.75 million on the construction of bicycle and pedestrian improvements throughout the state. Needs that are identified in the Transition Plan and in local community plans such as the City of Dover Pedestrian Plan will likely become a part of the Department’s project list for design and eventual construction and/or implementation. U.S. 13 Bus Stop (former Kmart site) Kings Highway/American Avenue 15

Existing Plans, Policies, and Programs DelDOT Safe Routes to School Program The Safe Routes to School (SRTS) Program is a DelDOT program whose primary purpose is to facilitate and encourage children to walk and bike to school safely. The State program was established in 2002, and the corresponding Federal SRTS program was initiated in 2005. Any public, private or charter schools are eligible to participate in the program, provided the projects benefit elementary and middle school age children. The SRTS program is divided into 5 compo- nents (the 5E’s): Engineering, Education, Enforcement, Encouragement, and Evaluation. DelDOT works with each school in the program to develop a Safe Routes to School Plan that incorporates each of these five elements into a com- prehensive program. Examples of eligible infrastructure and non-infrastructure costs are listed below. Infrastructure Non-infrastructure Sidewalk improvements Traffic education and enforcement Traffic calming Student sessions on safety Pedestrian signals Parent education materials Bicycle parking Evaluation and data gathering Four SRTS projects have been completed in the City of Dover, which consisted of improvements along pedestrian routes to 2 elementary schools (Booker T. Washington and Towne Point) and 2 middle schools (William Henry and Central Mid- dle) in the Capital School District. These improvements were completed in 2010 and 2011. The Capital School District was one of the first school districts in the state to take advantage of the Safe Routes to School funding. Central Middle School William Henry Middle School In addition, one SRTS project is currently in design, a project to enhance pedestrian access to W. Reilly Brown Elementary School on Webbs Lane. The project, which consists of new bulb outs, signals, and sidewalk upgrades, is scheduled for construction in the summer of 2015. There are currently no other SRTS projects proposed in the City of Dover. Webbs Lane at W. Reilly Brown School 16

Existing Plans, Policies, and Programs Dover Transit Center Neighborhood Plan In March 2011, following a design charrette process conducted the previous year, the Dover/Kent County Metropolitan Planning Organization (MPO) completed the Dover Transit Center Neighborhood Plan. The purpose of the Plan, devel- oped cooperatively with the Downtown Dover Partnership (DDP), was “to provide the City of Dover with a design and planning strategy for development around the new transit center. The plan also offers strategies to improve all modes of transport throughout downtown Dover.” The focal point of the study was the Dover Transit Center, located along Queen Street, Water Street, and West Street. The study area included a 16-block area, as shown in the graphic below. The study had the following key goals:  Improve the gateway entrances to the downtown area with building and improved streetscapes  Centralize parking in locations that encourage redevelopment and maintain streetscapes  Develop Queen, Water, and North Streets as improved corridors for vehicles and pedestrians  Encourage new development that compliments the existing historical architecture of Dover  Create a network of civic squares, open spaces, and public gathering places to provide greater connectivity  Use the transit center as an anchor for mixed use redevelopment and intermodal forms of transportation Study Area The study specifically evaluated potential land use and transportation opportunities along Queen Street, Water Street, and North Street. With regards to the pedestrian environment, the study recommended that “the pedestrian experience should be enhanced by improving sidewalks, providing landscaping buffering and/or removing existing surface parking lots, and adding pedestrian scale street lighting to improve comfort and safety.” Parts of this have recently been accom- plished with the completion of Phase I of the North Street streetscape project in 2013. An artist rendering showing an example of potential improvements is shown below. Implementation strategy (pedestrian related):  Provide streetscape and signage improvements at key gateways  Work with the City and DelDOT to improve crossings and to provide pedestrian-activated crosswalks at key intersections  Focus road improvements on Queen Street, Governors Avenue, Bank Lane, Water Street, and North Street  Promote the use of the St. Jones River (riverwalk, activity areas)  Construct streetscape enhancements along North Street and Water Street Artist Rendering - Queen/North Street 17

Existing Plans, Policies, and Programs Dover High School Pedestrian Study In the spring of 2013, the Dover/Kent County Metropolitan Planning Organization (MPO) conducted a study to evaluate the pedestrian needs associated with the construction of the new Dover High School. The new High School, which opened in August 2014, is located along Route 8 near the western limits of the City of Dover. It is located in a former agricultural area that has experienced significant residential growth in recent years. Route 8 is the primary east-west route in Dover, providing access to and from Maryland as well as facilitating local travel throughout the central Delaware region. Route 8 currently has average traffic volumes that exceed 18,000 vehicles per day, and has a relatively large percentage of commercial vehicles. In accordance with Department of Education requirements, students that live within a 2-mile walking radius of a high school are not required to be bussed, unless there is not a continuously safe way for them to walk to school. The pur- pose of the pedestrian study was to identify the sidewalk gaps and pedestrian needs within the 2-mile walking radius, develop conceptual plans and cost estimates for these areas, and identify potential constraints (environmental, drainage, utilities, right-of-way, etc.). The study evaluated 4 primary roads that are located within the 2-mile walking radius - Route 8, Kenton Road, Mifflin Road, and Hazlettville Road. Listed below is a summary of the study recommendations for each road. Route 8 - As part of the construction of the new high school, the school district has provided a 10-foot wide shared use path along its frontage. The path also goes to the rear of several existing residential properties. However, there were significant sidewalk gaps on both the north and south sides of Route 8, east of the new school. As a result of the study, DelDOT initiated a design project to install approximately 1,500 feet of new sidewalk on the north side of Route 8, be- tween the Cranberry Run and East Heatherfield communities. The sidewalk was constructed in the summer of 2014. In addition, as part of the new sidewalk project, DelDOT installed a High-Intensity Activated Crosswalk (HAWK) signal at the intersection of Route 8, Heatherfield Way, and the east entrance to the high school. The HAWK signal is a traffic signal that turns to red upon activation by a pedestrian. The signal stays dark unless activated. The HAWK signal pro- vides a safe signalized crossing for pedestrians crossing Route 8 to the high school. A photo of the HAWK signal is shown in the photograph below. Route 8 - Dover High School Route 8 - North Side Route 8 HAWK Signal 18

Existing Plans, Policies, and Programs Kenton Road - The Dover High School Pedestrian Study evaluated Kenton Road between Walker Road and Route 8, within the 2-mile walking radius of the new high school. Kenton Road is a 2-lane roadway that carries over 10,000 vehi- cles per day. The land use along the roadway is primarily high-density residential, with the Greentree Shopping Center located at the southern end. The YMCA swim club is also located at the intersection of Kenton Road and Walker Road. Currently, sidewalks are present along about 35% of the corridor. The study developed a concept plan and a cost estimate for providing continuous sidewalks along both sides of the roadway. Based on the recommendations of the study, DelDOT placed the Kenton Road project in the FY 2015- 2020 Capital Transportation Program (CTP). The project will add continuous sidewalks along Kenton Road from Route 8 to Chestnut Grove Road, a distance of 1.2 miles. As of September 2014, design is anticipated to begin in FY 2016. There was no construction funding allocated in the draft FY 2016 - 2021 CTP, as of September 2014. Kenton Road Mifflin Road - Mifflin Road, a 2-lane road between Route 8 and North Street, provides access for over 15,000 vehicles per day. With the exception of a bank on the southeast corner of Route 8 and Mifflin Road, the land use along the road- way is exclusively residential. The only sidewalk along Mifflin Road is located at the bank and a small section at the North Street intersection. A concrete pathway runs east to west and ties into Mifflin Road, providing pedestrian access from The Village of Westover to Mifflin Road. The Dover High School Pedestrian Study identified the potential for significant property, drainage and utility impacts associated with the installation of sidewalks along Mifflin Road. Sidewalks along this road are currently not part of the DelDOT Capital Transportation Program, and there is subsequently no design funding allocated for this improvement at this time. Mifflin Road Hazlettville Road - Hazlettville Road is a 2-lane road south of the new high school. The existing land use is primarily comprised of single-family and high-density residential units. Schutte Park is located on the south side of the road. There is existing sidewalk along the majority of the north side of Hazlettville Road, with the exception of 4 homes near Mifflin Road. There is also a shared use path along Schutte Park. Along the frontage of the Knottingham Meadows community, there is a gap in the sidewalk as it approaches Wyoming Mill Road (see photo). The new developer of the community is required to install the missing sidewalk, ensuring a continuous sidewalk along the south side of Hazlettville Road. There are no other plans at this time to install any additional sidewalk along Hazlettville Road, near its intersection with Mifflin Road. Hazlettville Road 19

Existing Plans, Policies, and Programs Delaware State University Pedestrian Study In the fall of 2013, the MPO conducted a study of pedestrian volumes along U.S. 13 and College Road around the cam- pus of Delaware State University. The university is located on the west side of U.S. 13, across from significant pedestri- an attractors such as the Dover Mall, Dover Downs, several shopping centers, and numerous restaurants. In addition, the University Courtyard apartment complex is located on College Road, approximately 1/4 mile from the main campus, and generates significant pedestrian volumes. In the summer of 2013, the university acquired the former Sheraton Ho- tel approximately 2/3 mile north of the main campus. The former Sheraton is now known as the DSU Commons, serv- ing as a residential hall for 250 students as well as an early college education program for high school students. There were several purposes of the study:  To quantify the pedestrian activity associated with the campus  To determine compliance with existing crosswalks  To identify pedestrian needs and determine potential solutions Listed below is a graphic that summarizes the pedestrian volumes as well as the crosswalk compliance, based on week- day and weekend counts that were taken at ten locations in October 2013. As noted in the graphic, the highest number of pedestrian crossings were recorded along College Road, between the University Courtyard apartments and the main campus. During the two day count period in October 2013, there were between 600 and 700 pedestrians that crossed College Road in this area. There was also over 600 pedestrians that crossed U.S. 13 at the main entrance to the university during the count period. 20

Existing Plans, Policies, and Programs As part of the pedestrian study, counters observed whether pedestrians were using the striped crosswalks or were crossing mid-block (outside of the designated crossing). From the study, the following conclusions can be drawn:  Pedestrians crossing at the U.S. 13/Dover Mall south entrance used the crosswalk 98% of the time  Pedestrians crossing at the U.S. 13/Dover Downs entrance used the crosswalk between 67% and 83% of the time  Pedestrians crossing College Road from the University Courtyard apartments to the main campus used the crosswalk only 7% of the time. As described below, several recommended improvements resulted from the study. The City of Dover also expressed interest in further evaluating improvements along College Road to increase safety for students. U.S. 13 Sidewalk - On the west side of U.S. 13, between the main campus and the DSU Commons, there was a 400- foot gap in the sidewalk network. This area is heavily used by pedestrians. The study identified this as a high-priority need, and as a result, DelDOT completed this project in the spring of 2014. U.S. 13 (Before) U.S. 13 (After) Extension of Brick Wall - The university is proposing to extend the existing brick wall approximately 950 feet south to College Road. The wall, which currently terminates north of the Dover Downs entrance, runs along approximately 2/3 of the campus’s U.S. 13 frontage. This improvement will serve to guide pedestrians to the designated crosswalks and sig- nalized intersections in this area, and reduce mid-block crossings of U.S. 13. U.S. 13 Post & Chain Fence/Landscaping - DelDOT is proposing to install a decorative post and chain fence with landscaping along the entire U.S. 13 frontage of the DSU campus. This improvement will reduce the opportunities for pedestrians to cross U.S. 13 at an unsignalized crossing. An artist rendering is shown on the photo to the right. As of September 2014, the funding for this project had not been allocated. DSU Sidewalk (existing) DSU Sidewalk (proposed) 21

Maintenance Policies As noted on page 2, maintenance-related issues compose two of the primary Goals to be addressed by the City of Dover Pedestrian Plan. The specific Goals are listed below:  Provide for routine/timely maintenance (cleaning and clearing) of walkways, especially after snowfalls and rain  Provide physical maintenance of walkways With regards to maintenance responsibilities, there are three different entities that play a role in the maintenance of pe- destrian facilities: DelDOT, the City of Dover, and private property owners. Listed below is a synopsis of the existing maintenance responsibilities of each entity, based on current policies and procedures. DelDOT Maintenance Responsibilities In accordance with a long-standing municipal agreement between the Department of Transportation and the City of Do- ver, DelDOT provides maintenance on state roads from curb to curb. Based on the town agreement between the 2 enti- ties, the City is responsible for maintenance on any transportation facilities beyond the curb line. This would include sidewalks and shared-use pathways. DelDOT adopted its Sidewalk and Multi-Use Path Maintenance Policy in 2013. As stated in the Policy, DelDOT does not maintain sidewalks owned or maintained by municipalities, located in subdivisions, privately owned, or maintained by others through a written agreement. With regards to snow removal of sidewalks and pathways, the Policy specifies the following:  In conjunction with established priorities for snow removal on roadways, snow removal for sidewalks and multi-use paths will commence immediately after completion of roads classified as “local” and subdivision 500 North State Street Sidewalk  Sidewalks and multi-use paths will be prioritized based on pedestrian traffic, high densities of elderly and dis- abled, schools, transit routes, and other high volume pedestrian facilities It was noted by the Subcommittee that the city has experienced concerns during heavy snowfall events, when snowplow operators tend to pile up compacted snow at the corners of intersections. This creates problems for pedestrians, partic- ularly those who may be disabled. The Subcommittee encourages DelDOT and the City’s Public Works Department to clear those areas as quickly as possible following a significant snowfall. As stated in the Policy, “all other maintenance, such as sweeping and trash removal, will be performed as resources are available within the Department.” With regards to street sweeping, in August 2014, DelDOT submitted its final Storm- water Management Plan for DNREC and Environmental Protection Agency review. The sweeping plan was required to be a science-based strategy targeting pollutant removal from state-owned roads before it enters the storm sewer sys- tem, and ultimately into rivers, lakes and streams. The targeted approach means that DelDOT is focusing on roads that have direct connections to the storm sewer system in areas that have the greatest potential to produce harmful pollu- tants (i.e. high traffic, commercial, industrial, residential). Each of these road types is swept at a frequency that maxim- izes DelDOT resources (manpower, equipment, budget) while meeting the terms of the National Pollutant Discharge Elimination System (NPDES) permit, which is to effectively prohibit the discharge of material other than storm- water. Because these road sections fall under different roadway categories, sweeping frequency will vary, but all will be swept at a frequency greater than the previous plan. Once the sweeping plan has been approved by DNREC and EPA, the exact frequency for each road will be determined. 22

Maintenance Policies City of Dover/Property Owner Maintenance Responsibilities The Dover Code of Ordinances contains several references to the maintenance responsibilities of property owners adja- cent to sidewalks. The Code of Ordinances reference is noted below, with the ordinance wording quoted. Article I, Sec. 98-5 : “It shall be unlawful for the owner or occupant of any premises abutting upon a sidewalk to permit or allow snow or ice to remain thereon for longer than 12 hours of daylight after it has ceased snowing, or to permit debris or other materials to accumulate at any time so that pedestrians may conveniently and safely pass.” Article I, Sec. 98-6 : “All persons occupying commercial establishments or premises fronting on any street or public place shall keep the sidewalk immediately in front of their premises clear of debris or other materials so that pedestrians may conveniently pass…” Article I, Sec. 114-2(h) : “All large or established trees shall be pruned to the following sufficient heights to allow the free passage of pedestrians - 8 feet over sidewalk.” Route 8 (at Greentree Shopping Center) 36 Delaware Avenue Article II, Sec. 28A : “The city council, at such time as it shall determine that the condition of a particular street or por- tion thereof, requires that sidewalks be laid, or that the sidewalks then existing...should be improved, or upon the peti- tion of a majority of persons owning property along any of the streets...asking that the sidewalks abutting on said street be improved, or that sidewalks be laid where there are none at the time of the petition, may direct the property owner or owners to lay or replace sidewalks with such materials, as in the judgment of the said council...may seem best under the circumstances. It shall be the duty of the city manager to give at least 15 days notice in writing to the owner or owners of said property affected by the action of the said council. It shall be the duty of the owner or owners, after notice shall have been given...to forthwith cause the said sidewalks to be laid or the improvement or alterations thereof to be made, as directed in said notice. Upon the failure of the owner or owners to lay or cause to be laid or improved or altered, the sidewalks...according to the direction of said notice, it shall be the duty of the city manager to cause the said sidewalks to be laid or altered or improved...according to the terms of such notice.” Article VII.B.4(b) - “If a homeowners association is formed...the organization shall be responsible for maintenance on...all open public facilities...including sidewalk…” In practice, the City’s Public Works Department repairs and reconstructs sidewalks as financial and personnel resources allow. An adjacent property owner is not responsible for making structural repairs to an existing sidewalk, based on current practice. Adjacent property owners are required to adhere to the regulations regarding snow removal, vegeta- tion clearing, and debris removal. The City does issue citations for violations, in accordance with the Code of Ordinanc- es. Specific pedestrian facility maintenance recommendations identified by the Subcommittee are noted on pages 47 - 48. Currently, the Code of Ordinances only refers to sidewalks. It is recommended that the Code be amended to include a reference to “shared-use path”, in addition to any sidewalk maintenance reference. This would require approval by the City Council. 23

Planned DelDOT Projects DelDOT has numerous projects planned in the City of Dover that will enhance mobility and safety for pedestrians. Listed below is a preliminary schedule for each proposed project, based on the DelDOT Fiscal Year 2015 - 2020 Capital Trans- portation Plan, as published in July 2014. The proposed DelDOT projects are also shown on Figure 4. Note that, of the 8 proposed projects, only one is currently funded for construction - the West Dover Connector. Proposed DelDOT Projects Project Limits Length Description Anticipated (Miles) Construction West Dover Connector North Street to 3.2 Extend Saulsbury Road to U.S. 13, FY 2015 U.S. 13 incorporating sidewalks, bike lanes, and a shared use path to facilitate bicyclists and pedestrians Kenton Road Route 8 to 1.2 Widen Kenton Road to include FY 2020+ Chestnut Grove Road shoulders, bike lanes, and sidewalks Loockerman Street/ Intersection 0.1 Install a roundabout and create a FY 2020+ Forest Street pedestrian friendly gateway Crawford Carroll Road Lowes to U.S. 13 0.5 Extend existing road to U.S. 13 Extension opposite Dover Mall, and include bike FY 2020+ and pedestrian amenities U.S. 13 Widening Puncheon Run to 0.3 Add a third through lane and FY 2020+ Walnut Shade Road continuous sidewalks to U.S. 13. U.S. 13 Sidewalks MLK Boulevard to 0.3 Install new sidewalks on both north- Loockerman Street bound and southbound U.S. 13 FY 2020+ Route 8/ 0.2 Install an additional through lane Saulsbury Road Intersection and left turn lane on NB and SB FY 2020+ Saulsbury Road 24

Planned DelDOT Projects 25

Areas of Opportunity The City of Dover, particularly in its urban downtown core, has had a long history of ensuring that pedestrian needs are considered and incorporated as part of land development and transportation investment decisions. In recent times, the City has made significant progress over the past several decades in ensuring that the needs of the pedestrian are equiv- alent to those of any other transportation mode. This is reflected in its municipal code, its land use design standards, and the recent installation of numerous privately-funded and publicly-funded pedestrian improvements throughout the City. The City has required that sidewalks be installed as part of all new development projects since at least the 1980’s. The City’s first Traditional Neighborhood Design, the Eden Hill Farm, will be developed as a community whose primary emphasis will be on the pedestrian and connectivity to adjacent mixed land uses. Since the Bicycle and Pedestrian Plan was completed in 1997, the City has also developed a trail network in its major parks, including Silver Lake Park and Schutte Park. In addition, DelDOT has enhanced pedestrian mobility and safety as part of roadway improvement projects on major routes such as Walker Road, South Governors Avenue, and North Street. DelDOT has also been very proactive about incorporating pedestrian needs into their traffic signal designs, as evidenced by recent signal upgrades along Division Street and North Street. However, despite the measurable progress that’s been made through the years, there are still numerous areas through- out the City that warrant improvements. A variety of agencies, including the City of Dover (through the Bicycle and Pe- destrian Subcommittee), DelDOT, and the Dover/Kent County Metropolitan Planning Organization have identified areas of need. At the public workshop held on June 26, 2014, the public was also afforded the opportunity to identify areas of concern. The information presented on the following pages details the areas of highest need within the City, as identi- fied by the public, the Bicycle/Pedestrian Subcommittee, and the applicable government agencies. Hazlettville Road West Street North Street Kenton Road 26

Pedestrian Needs The design of Dover’s street network dates back to the early 1700’s, when the predominant form of transportation was walking. As a result, virtually every street within the traditional core of the City has sidewalks, which essentially com- poses the entire area from Walker Road to Water Street (north to south) and U.S. 13 to Saulsbury Road (east to west). Loockerman Street, the original commercial area of Dover, is an excellent example of a traditional pedestrian-friendly street, complete with continuous sidewalks, mixed land use, and buildings close to the street. The vast majority of the remainder of the land use in downtown Dover is residential, with sidewalks fronting virtually every street. While much of the land use is residential, there are numerous pedestrian generators and attractors in downtown Dover, including the new Dover Library, Transit Center, Post Office, City Hall, State government buildings, and numerous shops and restau- rants. Downtown Dover also has several areas that provide open space and a natural setting amidst the urban environ- ment, including The Green, Legislative Mall, and the St. Jones River, all of which attract large numbers of pedestrians. Dover Public Library State Archives Based on an inventory that was conducted as part of the preparation of this plan, pedestrian needs are more evident in the areas of the City that were developed after the traditional core was completely developed. While the vast majority of the residential subdivisions that have been developed since the 1940’s have sidewalks, there are numerous State- maintained roads that do not have sidewalks. When these particular roads were built on the outskirts of the City, the adjacent land was undeveloped or agricultural, and sidewalks were not warranted. As the adjacent land began to devel- op, sidewalks or other adequate pedestrian facilities were often not incorporated into the land development. This of course has changed in recent times, as developers have been required to install sidewalks as part of the development approval process for over 30 years. College Road Mifflin Road 27

Pedestrian Needs As part of the development of the Pedestrian Plan, a quantitative-based analysis was used to prioritize pedestrian needs in the City. This analysis has been used by the MPO to Sidewalk Prioritization Process prioritize sidewalk needs in other Kent County Criteria Measure Points municipalities. The analysis considered the factors listed in the adjacent table. Bus stop Within 1/4 mile 2 Within 1/2 mile 1 The prioritization criteria takes into account a variety of land use and transportation conditions for each road that was evaluated. Land use conditions Commercial destinations Within 1/4 mile 2 include proximity to pedestrian generators and attractors such as commercial uses, recreational Within 1/2 mile 1 facilities (parks), and schools. Transportation conditions include presence of bus stops, proximity to sidewalks, and the presence of Community center Within 1/4 mile 2 shoulders along a road. Factors that considered Within 1/2 mile 1 a project’s cost were also included, with respect to a project’s potential impact to property and engineering factors such as drainage, utilities, Recreational facility Within 1/4 mile 2 and environmental impacts. Within 1/2 mile 1 A total of 16 State-maintained roads (representing 33 road segments) that currently do not have sidewalks or have significant School Within 1/4 mile 2 sidewalk gaps were evaluated and prioritized. While the vast majority of the City’s residential Within 1/2 mile 1 communities have sidewalks, there are some local streets where sidewalks do not exist. Examples include streets within older communities such as High-density residential Within 1/4 mile 2 Edgehill or East Lake Gardens. These are Within 1/2 mile 1 well-established communities, with low volumes and low speeds, and the cost, property impacts, etc. outweigh the need for sidewalks in these Proximity to existing sidewalks Within 1 block 2 areas. As a result, sidewalks were not evaluated in these communities. More than 1 block 1 Listed on the following pages is a description of the highest prioritized sidewalk needs Presence of shoulders No shoulders 2 within the City, based on the aforementioned Partial shoulders 1 prioritization criteria and input from the Bicycle/Pedestrian subcommittee. Continuous shoulders 0 Property impacts None/Minimal impacts 2 Potential impacts 1 Significant impacts 0 Drainage/utility/environmental None/Minimal impacts 2 Potential impacts 1 Significant impacts 0 Maximum Score 20 28

Recommendations - New Sidewalks and Trails Based on the sidewalk prioritization process described on the previous page, the following roads have the highest ranked needs for new sidewalk in the City of Dover: State-Maintained Roads - New Sidewalks Road Limits Rank South Little Creek Road City Limits to Babb Drive (Target Entrance) 1 Kenton Road Route 8 to Chestnut Grove Road 2 West Street North Street to Queen Street 3 U.S. 13 (Northbound) MLK Boulevard to White Oak Road 4 Townsend Boulevard to Leipsic Road Dover Mall to Denneys Road U.S. 13 (Southbound) North State Street to Townsend Boulevard 4 Kings Highway to Division Street North State Street Silver Lake to Lepore Drive 5 College Road Kenton Road to McKee Road 6 Route 8 (south side) Mifflin Road to Dover High School 7 Mifflin Road Woodmill Drive to Fawn Street 8 City-Maintained Streets - New Sidewalks Street Limits Pennsylvania Avenue Kings Highway to Division Street New Off-Road Trails Area Description Schutte Park Trail Continue the internal trail network throughout Schutte Park Fox Hall West to Route 8 Provide a pedestrian connection from Fox Hall West to Route 8 St. Jones River (west side) Provide a new trail from Silver Lake Park to Legislative Avenue 29

Recommendations - New Sidewalks (DelDOT) South Little Creek Road (#1 Ranked) The existing land use along South Little Creek Road between U.S. 13 and Route 1 is marked by a mixture of high- density apartments, single-family residential, light industrial, and large-scale commercial uses. The commercial uses include high-pedestrian attractors such as Target, Safeway, Royal Farms, and several fast-food restaurants located at the western limits of the area. There is also a convenience store located on the south side of the road near Tudor In- dustrial Park. South Little Creek Road also provides a direct access to destinations in downtown Dover, U.S. 13, and Bay Road, all within a relatively short walking distance. In addition, East Dover Elementary School is a significant pedestrian generator. Finally, there are 4 DART bus stops on South Little Creek Road between U.S. 13 and Route 1. Based on this mixture of land uses, and proximity to a wide variety of destinations, there is a steady volume of pedestrians that walk along South Little Creek Road. South Little Creek Road has an extensive network of existing sidewalks along both sides of the road. However, there are several small gaps in the sidewalk network, as listed below:  Between Babb Drive and Country Drive, along Cornerstone Church property (north side)  East of Roberta Avenue, along the Schoolview community (south side) While South Little Creek Road has 8 to 11-foot shoulders that can facilitate pedestrians in the areas without sidewalks, it is recommended that sidewalks be constructed in these aforementioned areas to provide a safer walking environment along a heavily used pedestrian corridor. Recommendation: Construct sidewalks to fill the two gaps detailed above Criteria Presence Bus stop Yes Commercial activity Yes Community center Yes South Little Creek Road (at Baptist Church) Recreational facility Yes School No High density community Yes Missing Sidewalk Existing sidewalks nearby Yes South Little Creek Ro ad Shoulders Yes Property impacts Likely South Little Creek Road (at Schoolview) Drainage/utility/environ. impacts Likely 30

Recommendations - New Sidewalks (DelDOT) Kenton Road (#2 Ranked) As noted, Kenton Road was evaluated as part of the Dover High School Pedestrian Study that was completed by the MPO in 2013. Kenton Road has a mixture of land uses in close proximity to each other that provides for a high potential of pedestrian volumes, particularly between Route 8 and Walker Road. There are several high-density townhouse com- munities located along the road, as well as significant commercial uses that include the Greentree shopping center, the Kent 8 Plaza shopping center, McDonalds, and Wawa. In 2013, the YMCA purchased the former Kent Swim Club proper- ty at the intersection of Kenton Road and Walker Road. Given the new ownership, there is a high potential for addition- al pedestrian volumes traveling to and from the new YMCA. West of Walker Road, the land use is composed of low- density residential land uses, as well as Maple Dale Country Club. Between Walker Road and Route 8, Kenton Road has portions of sidewalk along both the east and west sides of the road. However, continuous sidewalks are not present in this area. In some locations, fence or landscaping encroach- ments block access and force pedestrians into the shoulder or travel way, as evidenced in the photo below. Between Chestnut Grove Road and Walker Road, there are no sidewalks along Kenton Road. Based on the draft DelDOT FY 2016 - 2021 Capital Transportation Program (as of September 2014), Kenton Road is scheduled for shoulder widening (to accommodate bicycle lanes) and continuous sidewalks between Route 8 and Chest- nut Grove Road. The preliminary schedule is as follows: Design: Fiscal Years 2016 and 2017 Right-of Way & Construction: Unfunded Recommendation: Construct continuous sidewalks on Kenton Road from Route 8 to Chestnut Grove Road Criteria Presence Bus stop Yes Commercial activity Yes Community center Yes Kenton Road (at Greentree Drive) Recreational facility Yes School No Kenton Road High density community Yes Existing sidewalks nearby Yes Shoulders Partial Property impacts Yes Kenton Road (at Greentree Drive) Drainage/utility/environ. impacts Yes 31

Recommendations - New Sidewalks (DelDOT) West Street (#3 Ranked) West Street is a State-maintained road that connects North Street and Queen Street near downtown Dover. The land use along the west side of the corridor is dominated by the Norfolk Southern railroad. There are several businesses lo- cated near the West Street/Queen Street intersection. Along the east side, there are primarily government buildings or utility companies, including the J.P. Court, Chesapeake Utilities, and the Dover Police Department. The Dover Transit Center, which is the transit hub for all of DART’s Kent County routes, is located at the intersection of West Street, Water Street, and Queen Street. Fourteen local bus routes travel to and from the Transit Center every weekday. The existing shared-use trail that runs along North Street terminates at the railroad tracks and West Street, leaving east- bound pedestrians (and bicyclists) with no safe route to proceed into central or south Dover. West Street has no shoul- ders, and lacks sidewalks for most of its length. Sidewalks exist along the east side of the road between Bank Lane and Water Street, and along the perimeter of the Transit Center. Based on studies conducted by the MPO, West Street is heavily used by pedestrians walking from the downtown to the Transit Center. As a result of the MPO study, DelDOT is proposing to provide a 10-foot wide pathway between North Street and the Transit Center, constructing new sidewalk where it currently doesn’t exist (as shown in the photos below) and widening the existing sidewalk to provide for a shared-use facility. A conceptual design has been completed, how- ever, there is no design or construction funding allocated in DelDOT’s draft FY 2016 - 2021 Capital Transportation Pro- gram. Recommendation: Construct sidewalks along West Street to fill all gaps between North Street and Queen Street. In addition, construct sidewalk to fill adjacent gap along North Street. Criteria Presence Bus stop Yes Commercial activity Yes Community center No West Street (looking north) Recreational facility Yes School No e et North Str High density community Yes Missing Sidewalk Existing sidewalks nearby Yes Wes t Str Shoulders No eet Property impacts No West Street (at North Street) Drainage/utility/environ. impacts Likely 32

Recommendations - New Sidewalks (DelDOT and Private Developers) U.S. 13 (#4 Ranked) U.S. 13 is the most important commercial corridor in the City of Dover. Within its 6-mile limits in the City, there are hundreds of commercial businesses, restaurants, shops, and attractions, including the Dover Mall, Delaware State Uni- versity, and Dover Downs and Casino. While there are significant pedestrian volumes throughout the corridor, pedestri- ans are especially concentrated in the area near the Dover Mall and Delaware State University. Based on counts taken in October 2013, there were over 600 pedestrians that crossed U.S. 13 at the University entrance over a 2-day period. Nearly 400 pedestrians were observed crossing on a Saturday. There are 7 DART First State transit routes that travel on U.S. 13, which also leads to a strong pedestrian demand along the corridor. In addition to the day-to-day pedestrian demand generated by the commercial activity, there are several national events in Dover that create significant pedestrian volumes along U.S. 13 - NASCAR races and the Firefly Music Festival, each of which have attendance that exceed 80,000 people (twice as much as the population of Dover). These events, which occur at Dover Downs in early summer and early fall, create significant pedestrian demand for attendees that park at businesses along U.S. 13 and walk to the event. Pedestrians also walk along U.S. 13 to travel to and from shops, bars, and restaurants during the events. The City Council has long recognized the need to provide continuous sidewalks along U.S. 13. Sidewalk construction along U.S. 13 ranked #4 on the City of Dover’s 2014 Transportation Project Prioritization list presented to DelDOT. Recommendation: Construct sidewalks along U.S. 13 to fill all gaps within the City limits, as identified on page 34. Criteria Presence Bus stop Yes Commercial activity Yes Community center No U.S. 13 (near Division Street) Recreational facility No School No High density community Partial U. 13 S. Existing sidewalks nearby Yes Shoulders Partial Missing Sidewalk Property impacts Yes U.S. 13 (north of Dover Mall) Drainage/utility/environ. impacts Yes 33

Recommendations - New Sidewalks (DelDOT and Private Developers) U.S. 13 (#4 Ranked) - Continued The U.S. 13 corridor has seen several pedestrian improvement projects constructed in recent years, both privately and publicly funded. Several examples of recent sidewalk projects are listed below. Recent Sidewalk Projects  Northbound U.S. 13 (Public Safety Boulevard to MLK Boulevard)  Northbound U.S. 13 (CVS Pharmacy at Division Street)  Northbound U.S. 13 (Dover Mall entrance road)  Southbound U.S. 13 (Chick Fil-A)  Southbound U.S. 13 (Lowes to PetSmart)  Southbound U.S. 13 (MLK Boulevard to River Road) U.S. 13 (near Public Safety Boulevard) Sidewalk Gaps On northbound U.S. 13 between Webbs Lane and Denneys Road, about 30% of the corridor has missing sidewalks, which represents approximately 1.8 miles. Along southbound U.S. 13 within those same limits, about 15% of the corri- dor has missing sidewalks, representing approximately 0.8 miles. The sidewalk gaps are shown on Figure 5, and listed below for reference. Northbound U.S. 13 sidewalk gaps: Southbound U.S. 13 sidewalk gaps: MLK Boulevard to White Oak Road (0.5 miles) North State Street to Townsend Boulevard (0.3 miles) Townsend Boulevard to Leipsic Road (0.5 miles) Kings Highway to Division Street (0.3 miles) Dover Mall to Denneys Road (0.8 miles) Loockerman Street to MLK Boulevard (0.2 miles) Planned Projects Based on the draft DelDOT FY 2016 - 2021 Capital Transportation Program (as of September 2014), there is one DelDOT project proposed along U.S. 13. The project will include the installation of sidewalks from Martin Luther King Boulevard to Loockerman Street, along both northbound and southbound U.S. 13. The project will fill in an important missing sidewalk segment noted on the list above. Design is currently anticipated to begin in FY 2019. Several major development projects have been proposed along U.S. 13 in recent years, including the following:  Properties on the west side of U.S. 13 between Kings Highway and Maple Parkway  Former Berry Van Lines facility at U.S. 13/Leipsic Road  Former Playtex facility at U.S. 13/Division Street Should these properties re-develop in the future, the developers would be required to install sidewalks along U.S. 13 per City of Dover requirements, thus providing increased continuity in the U.S. 13 sidewalk network. U.S. 13 (near Leipsic Road) 34

Recommendations - New Sidewalks (DelDOT or Private Developers) North State Street (#5 Ranked) North State Street provides a direct north-south connection from downtown Dover to U.S. 13. Between Walker Road and U.S. 13, the road is a 4-lane undivided highway with no shoulders. Though the surrounding land use is dominated by Silver Lake, there are several pedestrian attractors and generators in the area. There are numerous businesses and shopping opportunities located near the intersection of U.S. 13 and North State Street. In addition, there is a strip shop- ping center located at the intersection of North State Street and Lepore Road. McGlynn’s and the Countrie Eatery are restaurants located on Silver Lake on the west side of the road. Several high-density residential communities are locat- ed near North State Street, including The Overlook on Silver Lake and Hiawatha Lane apartments. Due to its scenic na- ture, particularly across Silver Lake, North State Street is regularly used by joggers and walkers for recreational use. In the southbound direction, North State Street has sidewalks throughout its limits. Along northbound State Street, sidewalks are present throughout the entire corridor, with the exception of 2 gaps:  Between Silver Lake and Lepore Road  Between TD Bank and the Big Lots shopping center As shown in the photo below, the segment between Silver Lake and Lepore Road is inhibited by landscaping that causes pedestrians to walk in the travel lane. The property with the landscaping was recently purchased by a developer, so if the property does re-develop in the future, sidewalks along North State Street would be required by the City, thus filling in a vital link in the sidewalk network. The remaining gaps along State Street (two 220-foot gaps) would likely be filled in as the individual businesses re-developed, and would likely not be provided as part of a DelDOT improvement project. Recommendation: Construct sidewalks on North State Street from Lepore Drive to Silver Lake Criteria Presence Bus stop Yes Commercial activity Yes Community center No North State Street Recreational facility Yes School No Missing Sidewalk High density community Yes et North State St Existing sidewalks nearby Yes re Shoulders No Property impacts Yes North State Street Drainage/utility/environ. impacts Likely 35

Recommendations - New Sidewalks (DelDOT) College Road (#6 Ranked) College Road between Kenton Road and McKee Road is a 2-lane roadway without continuous shoulders or sidewalks. At the eastern and western ends, some areas have paved shoulders but the typical roadway section is not consistent throughout the area. College Road has sidewalks on the south side of the road, running from McKee Road west about 1,500 feet. Along the south side of the road, there is nearly 1/2 mile of roadway length without sidewalk. With the ex- ception of a strip shopping center at the intersection of College Road and McKee Road, there are no sidewalks located along the north side of College Road. Land use along College Road consists primarily of single-family residential, including the Fox Hall and Hidden Oak com- munities on the north side of the road. The south side of College Road consists primarily of low-density residential, a church, and a significant amount of undeveloped land. The only commercial uses are located at the College Road/ McKee Road intersection, which consists of a small shopping center, an office complex, and a bank. The North Dover Elementary School lies on the north side of College Road, only about 700 feet east of McKee Road, and is a potential pedestrian generator for students in this area. Based on the inconsistent typical section, the lack of continuous shoulders and sidewalks, and potential pedestrian desti- nations near McKee Road, it is recommended that pedestrian improvements be further evaluated along College Road. This road has shoulders and sidewalks between McKee Road and U.S. 13 (near Delaware State University), and the typi- cal section between McKee Road and Kenton Road is inconsistent with its functional classification. College Road is clas- sified as a minor arterial, which per DelDOT design standards, requires 12-foot travel lanes and 10-foot shoulders. Any widening of College Road would also require an evaluation of continuous sidewalks, per the Complete Streets Policy. Recommendation: Construct sidewalks on College Road from McKee Road to Kenton Road Criteria Presence Bus stop No Commercial activity Limited Community center No College Road (looking west) Recreational facility No School No K Mc ee ad High density community Some Ro Existing sidewalks nearby Yes ad Ro ge lle Shoulders No Co Property impacts Yes College Road (at McKee Road) Drainage/utility/environ. impacts Likely 36

Recommendations - New Sidewalks (DelDOT) Route 8 (#7 Ranked) The need for sidewalks along the south side of Route 8, between Mifflin Road and the new Dover High School, was ini- tially evaluated as part of the Dover High School Pedestrian Study. That study identified the impacts associated with installing sidewalks on both the north and south sides of Route 8. The land use in this area is predominantly low-density residential and agricultural. However, because of the location of the new high school, there are significantly higher pedestrian volumes traveling on Route 8 now that the school is open. The high school has installed a 10-foot wide shared use path along its Route 8 frontage, as well as provided a path be- hind the existing homes closest to the new school. In addition, in the summer of 2014, DelDOT constructed sidewalks along the north side of Route 8, as well as installed a HAWK pedestrian-activated signal near the school. However, there is still a quarter-mile gap in the sidewalk along the south side of Route 8 between the high school’s side- walk and sidewalk that currently exists east of Mifflin Road. Based on the area’s land use (denser heading to the east), it is anticipated that students will be walking from areas such as Mifflin Road, Woodmill Apartments, and Farmview along Route 8 to travel to the high school. It is recommended that a sidewalk along the south side of Route 8 be evaluated and programmed for design funding in order to provide a safe walking environment for students. The installation of a sidewalk would also reduce the costs associated with busing students that live a short distance from the school. The City Council recognized the need to provide continuous sidewalks in this area, as sidewalk construction in the Dover High School Walk Zone ranked #2 on the City of Dover’s 2014 Transportation Project Prioritization list presented to DelDOT. Recommendation: Construct sidewalks on the south side of Route 8 from Mifflin Road to Dover High School Criteria Presence Bus stop No Commercial activity Limited Community center Yes Route 8 (South side) Recreational facility Yes School Yes Missing Sidewalk High density community Some Existing sidewalks nearby Yes Shoulders Yes High School Sidewalk Property impacts Yes Route 8 (Adjacent to Dover High School) Drainage/utility/environ. impacts Yes 37

Recommendations - New Sidewalks (DelDOT) Mifflin Road (#8 Ranked) Mifflin Road was also evaluated as part of the Dover High School Pedestrian Study. Mifflin Road is a 2-lane road with shoulders that carries over 15,000 vehicles per day between Route 8 and Hazlettville Road. The speed limit is posted at 35 MPH, and a mini-roundabout is located near the center of the limits to provide traffic calming. The land use is char- acterized by low-density residential, with a bank and convenience store located at the Route 8/Mifflin Road intersection. Schutte Park, a large recreational area owned by the City of Dover, is located near the south end of Mifflin Road. The only sidewalks are located at the Route 8/Mifflin Road and Hazlettville Road/Mifflin Road intersections, providing for about 300 feet of sidewalks along Mifflin Road. The existing paved shoulders along Mifflin Road facilitate pedestrian mobility throughout the area, to and from the commercial areas along Route 8 as well as Schutte Park to the south. The Dover High School Pedestrian Study determined that adding sidewalks along the entire length of Mifflin Road would create potential adverse impacts to private property and would require significant drainage improvements. Based on the concept design evaluated in the Dover High School Pedestrian Study, the estimated cost to add sidewalks to both sides of Mifflin Road was nearly $2.2 million. A possible alternative to this project would be to provide a 600-foot sidewalk on the east side of Mifflin Road only, be- tween Woodmill Drive and Fawn Street, and connect with an existing sidewalk that runs from Mifflin Road to the Village of Westover. The aerial photo below shows this proposed sidewalk connection. The sidewalk would improve safety and mobility for pedestrians traveling to and from the new Dover High School, which is directly tied into the Village of Westover via bike and pedestrian connections. This option would require a mid-block crossing of Mifflin Road, which would have to be evaluated by the DelDOT Traffic Section. Recommendation: Construct sidewalk on east side of Mifflin Road from Woodmill Drive to Fawn Street Criteria Presence Bus stop No Commercial activity Yes Community center Yes Recreational facility Yes Mifflin Road (at Woodmill Drive) School Yes Proposed Sidewalk Fawn Street High density community Yes Existing sidewalks nearby Limited Woodmill Drive Shoulders Yes Existing Sidewalk Property impacts Yes Village of Westover Mifflin Road Drainage/utility/environ. impacts Yes 38

Recommendations - New Sidewalk (City of Dover) Schutte Park Trail Schutte Park, a City-owned park located at the intersection of Hazlettville Road/Mifflin Road/Wyoming Mill Road, is one of the Dover’s largest parks. The Schutte Park complex consists of several parcels of land, including 57 acres dedicated to active recreation, soccer fields, and 4 softball fields. In addition, the Dover Little League fields are located on the south end of the property, consisting of about 107 acres. The John Pitts Recreation Center, which provides indoor rec- reational and fitness facilities, is also located within the Park. A 10-foot wide concrete trail is located along the entire Hazlettville Road frontage of the Park. Along the park entrance road, the trail heads south for about 1/3 mile and terminates in a parking lot, as shown on the map below. In order to provide additional recreational and fitness opportunities for walkers and bicyclists, it is recommended that the City evaluate extending the existing trail network to the south. The trail network could be extended into the wooded areas of the park to provide a natural setting for area walkers, similar to the trail network that Kent County has success- fully installed at Brecknock Park in Camden. A soft surface (stone dust) could be used in the wooded areas. As of fall 2014, the City was in the process of updating its Parks and Recreation Plan, and it is recommended that the feasibility of a Schutte Park trail extension be evaluated as part of that Plan update. In the spring of 2014, the City initi- ated a topographic survey of the property to determine the potential for future park amenities such as additional trails. Recommendation: Extend the existing Schutte Park trail to the Dover Little League and around the perimeter of the Park, including the wooded areas of the Park Existing Trail Schutte Park Dover Little League 39

Recommendations - New Sidewalk (City of Dover) Fox Hall West/Mallard Pond/Route 8 Connector Fox Hall West and Mallard Pond are residential communities in the west part of Dover, comprising nearly 200 single- family lots. The communities only have access from Kenton Road. As shown on the map on the following page, Fox Hall West is only about 1/4 mile north of Route 8. However, the com- munity does not have vehicular or pedestrian access to Route 8, so all trips traveling to Route 8 must be made via Ken- ton Road. Due to the lack of sidewalks along Kenton Road, it can be safely assumed that these trips are almost exclu- sively done with a motor vehicle, as opposed to walking or riding a bike. The new Dover High School, which opened in the summer of 2014, is located along Route 8 in close proximity to these communities. However, due to the lack of pedestrian access to Route 8, a trip from the southern end of Fox Hall West to the new school is 2.2 miles, traveling along Kenton Road. If there were direct pedestrian access to Route 8 though, this trip would be reduced to 0.8 mile. The City of Dover owns 2 parcels of land in between Route 8 and Fox Hall West, comprising 8.7 acres of open space (including Mallard Pond Park). It is recommended that the City of Dover evaluate the feasibility of constructing a bicy- cle/pedestrian trail connection from Fox Hall West (via Pebble Valley Drive) to Marsh Creek Lane, as a means of provid- ing a direct non-motorized connection to Route 8. A trail connection could also be made to an existing sidewalk that connects the Mallard Pond community with the Mallard Pond Park. Providing direct pedestrian access to Route 8 would eliminate vehicular trips along Kenton Road, provide additional recreational access for area residents, and improve ac- cess to the new high school. Marsh Creek Lane is just east of the HAWK pedestrian-activated traffic signal that was in- stalled in the summer of 2014. Marsh Creek Lane has sidewalks along its entire length. In July 2014, the City held a public workshop to discuss the proposed trail concept with neighboring residents. Recommendation: Construct trail from Fox Hall West and Mallard Pond communities to Route 8, through Mallard Pond Park Mallard Pond Park (Existing) Mallard Pond Park (Proposed) Pebble Valley Drive (Existing) Pebble Valley Drive (Proposed) 40

Recommendations - New Sidewalk (City of Dover) Fox Hall West/Mallard Pond/Route 8 Connector (Continued) Ke nto nR oa d Fox Hall West Mallard Pond Proposed Trail 8 Dover High School Pebble Valley Drive Mallard Pond City of Dover Lands Mallard Pond Park Proposed Trail Marsh Creek Lane 8 41

Recommendations - New Sidewalk (City of Dover) Pennsylvania Avenue Pennsylvania Avenue is a City-maintained street that runs north to south in the heart of Dover. Sidewalk exists along the entire street, with the exception of an approximately 175-foot section on the west side of the road between Division Street and Kings Highway. The land use in this area is a mix between low-density residential, small-scale commercial, the DNREC office complex, and the Governor’s Café restaurant. A DART bus stop is located at the intersection of Penn- sylvania Avenue and Kings Highway. Based on the surrounding land uses, there is a relatively high volume of pedestrian activity in the area. et ion Stre Divis Pennsylvania Avenue Proposed Sidewalk High way King s Recommendation: Construct sidewalk on the west side of Pennsylvania Avenue between Division Street and Kings Highway Pennsylvania Avenue (looking south) 42

Recommendations - New Trails (DelDOT) St. Jones River Trail As part of the plan’s public involvement effort, the City of Dover’s Silver Lake Commission requested that a new trail be constructed on the west side of the St. Jones River, from Silver Lake Park to Legislative Avenue near the Dover Post Of- fice. This trail would provide recreational access to Silver Lake Park from a wide variety of uses in downtown Dover, including the Post Office, the Dover Library, the Department of Natural Resources and Environmental Control (DNREC) complex, and Fraizer’s restaurant. According to the Silver Lake Commission’s request, “the Commission seeks these trail improvements, predominantly from the standpoint of improving outdoor amenities within Silver Lake Park and along the St. Jones River though we are quite cognizant of the economic benefits it would provide downtown Dover and the health and quality of life benefits it would provide our residents and visitors.” As shown on the adjacent graphic, the trail would complete a loop network around the St. Jones River Silver Lake Park by connecting Silver Lake Park with the existing sidewalks near the Post Office, Library, and DNREC facilities. Sidewalks are currently located only on the east side of the St. Jones River, along Park Central Middle School Drive. Phase III of the Capital City Trail, completed in the fall of 2014, widened these existing sidewalks to provide for a 10-foot wide shared use path on the east side of the river. This proposal would require the acquisition of right-of-way from about 5 property owners. Environmental permits would likely be required due to its location within the floodplain eet and proximity to existing wetlands. io n Str In addition, a new mid-block trail Divis crossing of Division Street would have to be evaluated by DelDOT. Park Proposed Trail Driv e sla Legi t Stree Ave. n erma Dover Library tive Loock Recommendation: Provide a new trail on the west side of the St. Jones River between Silver Lake Park and Legislative Avenue 43

Recommendations - Pedestrian Signals As noted in this report, thirteen traffic signals within City limits currently do not have pedestrian signals. The signals are all located along State-maintained roads. Each of these locations has been reviewed with respect to a variety of factors to determine if further evaluation is warranted, to ultimately determine if pedestrian signals should be installed. Out of the 13 signalized intersections that were analyzed, it is recommended that 5 of these locations be further evaluat- ed to determine pedestrian signal feasibility. A status of each intersection is described below. Not Recommended for Further Evaluation  U.S. 13/Scarborough Road - No further evaluation at this time, as Crawford Carroll Road provides alternative pedestrian access to Del Tech.  U.S. 13/Delaware State University Commons - No further evaluation at this time, as there is currently no side- walk on the east side of U.S. 13 across from DSU Commons.  U.S. 13/Bay Road - Included in DelDOT’s U.S. 13 (Loockerman Street - MLK Boulevard) project limits. Design scheduled in FY 2019.  U.S. 13/Puncheon Run Connector - No further evaluation, due to low pedestrian activity.  Kenton Road/Walker Road - Included in DelDOT’s Kenton Road project limits. Design scheduled in FY 2016.  Kenton Road/College Road - Included in DelDOT’s Kenton Road project limits. Design scheduled in FY 2016.  Kenton Road/Denneys Road - No further evaluation, due to low pedestrian activity in a rural area.  McKee Road/Denneys Road - No further evaluation, due to low pedestrian activity in a rural area. Locations to Evaluate for Pedestrian Signals Intersection Striped Crosswalk U.S. 13/Roosevelt Avenue No Wa lker Roa d U.S. 13/South State Street No e Stre U.S. 13/Webbs Lane No venu et A rnors ve Stat Go e South State Street/ Partial Webbs Lane State Street/Governors Avenue/Walker Road North State Street/Governors No Avenue/Walker Road The 5 intersections recommended for further evaluation are shown on Figure 5. The MPO, in coordination with DelDOT Traffic, will be conducting an analysis to determine the feasibility of installing pedestrian signals at these 5 intersections. The analysis will evaluate factors such as pedestrian desire lines, crosswalk locations, incorporation of pedestrian phas- ing into the overall signal phasing, and whether pedestrians can cross an entire intersection in a cycle or would have to stop in a median (such as along U.S. 13). Recommendation: Evaluate pedestrian signals at the 5 signalized intersections noted above 44

Recommendations - Maintenance Based on the information provided by the City’s Bicycle and Pedestrian Subcommittee, the MPO, and the public, im- proved maintenance of the following facilities should be further evaluated: North Street Trail The North Street Trail is an 8-foot wide, off-road facility that runs along the south side of North Street. The trail runs between Schutte Park and West Street, a distance of about 1.3 miles. The pathway ties into the existing trail network at Eden Hill Farm, including the Medical Center, and is used regularly by pedestrians, joggers, and bicyclists for recreation as well as transportation purposes. The pathway is adjacent to an industrial complex consisting of Kraft Foods and Proctor & Gamble, and is often used by employees for recreation. The North Street Trail will likely gain additional pedes- trian volumes in the future, as DelDOT is currently exploring ways to connect this facility with the recently-constructed Capital City Trail in downtown Dover. Given its location and the mixture of land uses that it connects, particularly the recreational opportunities afforded by Schutte Park, the North Street Trail could provide an important pedestrian link in this part of Dover. However, the trail’s asphalt surface is currently in poor condition, and maintenance is non-existent. Based on the DelDOT Sidewalk and Mul- ti-Use Path Maintenance Policy, DelDOT is responsible for maintenance between West Street and the Proctor & Gamble facility (1.0 mile), as this portion lies within the State right-of-way. However, along the Proctor & Gamble frontage, the trail lies outside of the State right-of-way and maintenance would be the responsibility of the property owner (Proctor & Gamble). In order to further promote the use of this important pedestrian connection between downtown Dover, the Eden Hill Farm community, and Schutte Park, it is recommended that the existing surface be re-paved, and trail signs installed. There are currently no signs that indicate the presence of a trail. Naming the trail would provide a sense of place and could potentially increase its use. This trail could also provide a multi-modal connection to the First State Heritage Trail, which consists of a variety of historic resources and destinations in downtown Dover. The artist renderings below show the current path with a new hot mix surface and decorative trail signs. Recommendation: Resurface the North Street trail from Schutte Park to West Street and add signage North Street Trail (Existing) North Street Trail (Proposed) North Street Trail (Existing) North Street Trail (Proposed) 45

Recommendations - Maintenance The Bicycle and Pedestrian Subcommittee, the MPO, and the public identified additional maintenance needs throughout the City, ranging from vegetation removal to replacement of sidewalk. The Subcommittee recommended that two sepa- rate maintenance lists be developed - one for repairs such as pavement resurfacing, sidewalk replacement, etc. and the second list to identify areas that require regular upkeep of the sidewalk or pathway. Listed below are the areas recommended for physical repairs. It is recommended that the maintenance needs of the following locations be implemented, in accordance with City ordinances and procedures: Identified Maintenance Needs - Repairs Rank Location Limits Maintenance Issue Responsibility 1 State Street North Governors Avenue Uprooted, uneven sidewalks City of Dover/ to Roosevelt Avenue Property Owner 2 Route 8 Path Modern Maturity Center to Potholes/sinkholes in City of Dover/ Greentree Shopping Center shared use path Property Owner 3 Saulsbury Road/ Scarborough Road to Potholes/sinkholes in City of Dover/ McKee Road Route 8 shared use path Property Owner 4 Delaware Avenue 32 & 36 Delaware Avenue Depressed brick sidewalk City of Dover/ Property Owner Recommendation: Revise the Code of Ordinances to add “shared-use path” to any reference to sidewalk maintenance in the Code. North State Street (near Division Street) 500 North State Street 46

Recommendations - Maintenance Listed below are the areas recommended for regular maintenance, due to overgrown vegetation, debris accumulation, etc.: Identified Maintenance Needs - Clean Up and Trim Location Limits Maintenance Issue Responsibility Delaware Avenue 101 Delaware Avenue Vegetation in sidewalk Property Owner Route 8 Independence Boulevard Low hanging tree limbs Property Owner to Kenton Road Route 8 Modern Maturity Center Vegetation in trail Property Owner McKee Road Walker Road to College Road Vegetation in trail Property Owner Scarborough Road Bridge over railroad tracks Debris along pathway DelDOT Route 8 at Greentree Shopping Center Delaware Avenue (looking west) 47

Recommendations - Signing, Striping, Lighting, and Fencing Based on the analysis and public outreach conducted as part of the preparation of this plan, several needs have been identified that relate to signing, striping, and fencing. Listed on pages 49 - 55 are seven areas recommended for further evaluation. South State Street/Bayhealth (Skull Terrace) As noted, there were 3 reported crashes that involved a pedestrian at the intersection of South State Street and Skull Terrace. While the main hospital lies on the west side of South State Street, there are hospital facilities and parking also located on the east side, which leads to steady pedestrian traffic across the road. The posted speed limit is 25 MPH. Based on the 2012 DelDOT Traffic Summary, there are nearly 10,000 vehicles per day that travel along South State Street. A DART bus stop is located at this intersection as well. A “yield to pedestrians” sign is situated in the roadway, and a flashing school beacon with 20 MPH placard is located just south of the intersection. This intersection was included in DelDOT’s 2012 Kent County School Zone Manual on Uniform Traffic Control (MUTCD) Compliance Study. As a result of that study, several signing and striping improvements are proposed at the intersection. The artist rendering below shows the proposed improvements. In addition, as part of the recent hospital expansion pro- ject, Bayhealth is responsible for providing street lighting to ensure the crosswalk is properly lit. South State Street (Existing) South State Street (Proposed) Recommendation: Add additional signing and striping at South State Street/Skull Terrace crossing Saulsbury Road/Gateway Boulevard This location is a signalized intersection that provides the primary access into the Gateway West Shopping Center. Saulsbury Road, also designated as Delaware Route 15, is a major north-south route that carries between 16,000 and 18,000 vehicles per day in this area. Saulsbury Road will also provide a direct connection to the West Dover Connector, which is scheduled for completion in 2017. Current speed limits along Saulsbury Road are 35 MPH. At Gateway Boulevard, Saulsbury Road’s typical section consists of 2 through lanes, a center turn lane, and 2 shoulders/right turn lanes. The total pavement width is about 55 feet. The photo to the right shows the intersection layout, looking north. Saulsbury Road/Gateway Boulevard 48

Recommendations - Signing, Striping, Lighting, and Fencing The land use on the east side of Saulsbury Road consists of single-family residential lots, composing a large community known as Lincoln Park. A City-owned park (Saulsbury Park) is located directly across from the Gateway Boulevard inter- section. The existing intersection has a pedestrian signal and crosswalk located on the south side of the intersection, as shown on the previous page. However, as noted in the photo on the left, pedestrians typic- ally cross from the residential areas through Saulsbury Park, and across Saulsbury Road north of the pedestrian signal. Pedestrians often use the center lane as a refuge area, due to the heavy volumes and width of pavement to cross. Despite the safety hazards associated with cross- ing at an un-signalized mid-block location, pedes- trians are not likely to travel to the south side of the intersection to access the pedestrian button. In order to reduce the number of pedestrians crossing mid-block, it is recommended that the Saulsbury Road & Gateway Boulevard following 2 items be evaluated by DelDOT and the City:  A pedestrian signal and crosswalk be added to the north side of the intersection. The north side is receiving the highest pedestrian activity, based on visual observations. In addition, residents who live in the Dover Housing Authority property on Simon Circle do not have direct pedestrian access to Saulsbury Road, as the property is enclosed by a fence.  A fence or landscaping buffer be installed along Saulsbury Park to funnel pedestrians to the north side of the intersection (should a pedestrian signal be added) and significantly reduce mid-block crossings. Fence openings could be provided at each end of the park. In addition, trail connections could be provided through the park, utilizing the existing 15-foot wide unpaved alley that runs on the perimeter of the community. Recommendation: Install fencing along Saulsbury Park to reduce mid-block crossings and add pedestrian signal and crosswalk at Saulsbury Road/Gateway Boulevard to the north side Install Fence/Landscaped Barrier Alley (Unpaved) Proposed Trail Add Ped Signal & Crosswalk Dover Housing Authority Proposed Improvements - Saulsbury Road & Gateway Boulevard 49

Recommendations - Signing, Striping, Lighting, and Fencing John Hunn Brown Road/Luther Village John Hunn Brown Road is a 2-lane connector road that provides access to a variety of commercial uses between East Loockerman Street and South Little Creek Road (via Babb Drive). These commercial uses include large-scale businesses such as Target and Safeway, as well as 4 restaurants that access the road. In addition, Luther Village, an age-restricted (62+) residential community consisting of 100 apartments, is located on the north side of the road. John Hunn Brown Road has sidewalks on one side of the road throughout the corridor. Between Babb Drive and the entrance to the La Tolnateca restaurant, the sidewalks are located on the south side of the road. There are sidewalks within the Luther Village complex that terminate on the north side of John Hunn Brown Road, as shown in the aerial. Jo h un nH n n Luther Village Brow Target ad Ro Babb Drive Luther Village (Viewed from Target) A continuous wooden fence runs along the north side of the road, from Babb Drive west past the Target store. As shown in the photos, this fence is a barrier that prevents direct pedestrian access from Luther Village to Target. Be- cause of the fence location, pedestrians from Luther Village have to walk over 1,000 feet (through a combination of in- ternal sidewalks and sidewalks on the south side of John Hunn Brown Road) to access Target. If a gap was provided in the fence, the distance would be reduced to under 300 feet, which is particularly important for an elderly population. Luther Village representatives had previously contacted the MPO to determine if there were any potential solutions to providing this pedestrian connection. It is recommended that the City of Dover Planning Department coordinate with the property owners to evaluate the feasibility of providing a direct pedestrian connection from Luther Village to Target and the surrounding restaurants. Providing a gap in the fence would reduce vehicular trips and enhance the pedestrian environment in this mixed-use area. Recommendation: Provide a gap in the existing fence to facilitate pedestrian access between Target and Luther Village and provide a crosswalk across John Hunn Brown Road Ex g Luther Village istin nc e Fe Provide Gap Target Add Crosswalk Target (Viewed from Luther Village) Recommended Improvements 50

Recommendations - Signing and Striping North State Street/Washington Street As a result of public input, there is a need to provide an improved pedestrian crossing at North State Street and Wash- ington Street. As noted in the aerial photo below, Washington Street provides the only vehicular and pedestrian access from the residential areas in north Dover to Silver Lake Park. Washington Street is a low-speed, low-density residential street with continuous sidewalks along the south side and much of the north side of the street. North State Street is a State-maintained road that carries nearly 8,000 vehicles per day. The speed limit is posted at 25 MPH, and a radar speed sign is located about 1/4 mile north of the intersection. In 2010, DelDOT evaluated North State Street between Division Street and Walker Road to determine the potential loca- tions for mid-block pedestrian crossings in this area. The intersection of North State Street and Washington Street was determined to be a viable location for a mid-block crossing. DelDOT indicated that a mid-block crossing could be in- stalled if curb ramps were installed on both sides of North State Street. The existing conditions and proposed improve- ments are shown in the photos below. North State Street Provide Mid Block Crossing Washington Street Silver Lake Park Recommendation: Provide curb ramps on North State Street at Washington Street so a mid-block pedestrian crossing can be provided North State Street (Existing) North State Street (Proposed) 51

Recommendations - Signing and Striping South New Street at Owens Manor Apartments As a result of public input, there is a need to re-stripe the existing pedestrian crossing that provides access across South New Street between the Owens Manor Apartment complex and the commercial areas on the east side of South New Street. South New Street is a 2-lane, City-maintained street with a mixture of commercial, institutional, and residential land uses adjacent to the road. The speed limit is posted at 25 MPH. Owens Manor is a large apartment building on the west side of the street, while there are several commercial businesses on the east side, including a convenience store, several small restaurants, and a liquor store. Based on visual observations, there is significant pedestrian activity in this area. In addition, there is a DART bus stop located on the east side of the street at the intersection of South New Street and Bank Lane, just north of the apartment complex. As noted in the photos below, there are pedestrian warning signs along South New Street at the apartment complex but the pedestrian crosswalk is no longer visible. As a result, it is recommended that the crosswalk be re-striped to improve motorist awareness of pedestrians crossing the street. South New Street (Looking South) Recommendation: Restripe the existing mid-block crossing of South New Street at the Owens Manor Apartment complex Existing Crosswalk (Looking East) Proposed Crosswalk (Looking East) 52

Recommendations - Curb Ramps Kings Highway/American Avenue The intersection of Kings Highway and American Avenue is located in a high-activity pedestrian area of downtown Do- ver. Located near the intersection are pedestrian generators and attractors that include government office buildings (the City of Dover’s Weyandt Hall facility, the state Department of Natural Resources and Environmental Control office), commercial establishments (Governor’s Café, businesses along South State Street, and several banks), and numerous residential areas. In addition, a DART bus stop is located at Kings Highway and Reed Street, about 125 feet south of American Avenue. As noted in the photo below, the intersection lacks handicapped-accessible curb ramps along the west side of the road. In addition, the entrance at the former Dover Library (adjacent to Weyandt Hall) lacks curb ramps, as noted in the pho- to below. The former Library property is currently owned by the City of Dover. The area on the west side of Kings Highway (along the Weyandt Hall and former Library properties) has an asphalt sidewalk but would likely need to be upgraded to concrete to better facilitate handicapped access. As Kings Highway is a State-maintained road, DelDOT may be able to add this location to an existing curb ramp im- provement contract or possibly the Americans with Disabilities Act (ADA) Transition Plan implementation contract that will be procured in the future. The City should add curb ramps to the entrance to the former Library, either as a standalone project or in conjunction with any future re-development of the property. Recommendation: Provide curb ramps along Kings Highway at American Avenue and the former Dover Public Library. Provide concrete sidewalks along the Weyandt Hall and Library properties. Kings Highway/American Avenue Kings Highway (Looking South) 53

Recommendations - Delaware State University (College Road) College Road at University Courtyard As part of the Delaware State University Pedestrian Study, the MPO conducted pedestrian counts along College Road between the main campus and the University Courtyard, a student apartment complex about 1/4 mile from the universi- ty’s College Road entrance. College Road is a 2-lane roadway with a posted speed limit of 35 MPH. Based on the 2012 DelDOT Traffic Summary, the average daily volumes on College Road approach 9,000 vehicles per day. As noted previously, the pedestrian counts were conducted in 2013 on October 2 (Wednesday) and October 5 (Saturday), between the hours of 9:00 AM and 7:00 PM. During the 2-day period, approximately 700 pedestrians were observed crossing College Road between the University Courtyard (south side of the road) and the main campus (north side). Of these, over 500 pedestrians were recorded on a weekday. As shown in the adjacent photo, there is an existing crosswalk and pedestrian warning signs at the intersection of College Road and the University Courtyard entrance (Jason Street). The crosswalk is located on the west side of the intersection. The DSU Pedestrian Study evaluated whether pedestrians used the crosswalk or crossed at a mid-block location closer to the campus. Based on the pedestrian counts, only 7% of the pedestrians used the existing crosswalk, while 93% crossed mid-block outside of the crosswalk. There is sidewalk located on the north side of College Road between the campus and the apartment complex. On the south side, the sidewalk ends just east of the Silver Lake bridge. Based on visual observations taken as part of the DSU Pedestrian Study, most College Road & Jason Street pedestrians crossed the road before they reached the bridge, likely due to the lack of sidewalk and the reduced sight distance coming around the College Road curve near the campus. In March 2014, the DelDOT Traffic Section provided the following recommendations (shown on the graphics below):  Provide an additional crosswalk on the east side of the College Road/Jason Street intersection  Evaluate widening the existing sidewalk on the north side of College Road, between University Courtyard and the main campus. In March 2014, the City’s Safety Advisory and Transportation Committee suggested that additional street lighting along College Road be evaluated. There are currently 6 cobra head street lights between the DSU entrance and Jason Street. However, only 1 of these is located on the north side of the road. It is recommended that the City and DelDOT evaluate the feasibility of providing additional street lighting in this area, particularly along the wooded area near campus. Recommendation: Add a crosswalk on the east side of College Road/Jason Street, widen the sidewalk between University Courtyard and main campus, and add street lighting on the north side of College Road College Road Add Street Lighting Improve Ramp Add Crosswalk Widen Sidewalk Jason Street University Courtyard College Road & University Courtyard Proposed College Road Sidewalk Improvements 54

Recommendations Summary 55

Recommendations Summary New Sidewalks Rank Road Limits Responsibility 1 South Little Creek Road City Limits to Babb Drive (Target Entrance) DelDOT 2 Kenton Road Route 8 to Chestnut Grove Road DelDOT 3 West Street North Street to Queen Street DelDOT 4 U.S. 13 (Northbound) MLK Boulevard to White Oak Road DelDOT/Developers Townsend Boulevard to Leipsic Road Dover Mall to Denneys Road 4 U.S. 13 (Southbound) North State Street to Townsend Boulevard DelDOT/Developers Kings Highway to Division Street Loockerman Street to MLK Boulevard 5 North State Street Silver Lake to Lepore Drive Private Developers 6 College Road Kenton Road to McKee Road DelDOT 7 Route 8 (south side) Mifflin Road to Dover High School DelDOT 8 Mifflin Road Woodmill Drive to Fawn Street DelDOT 9 Pennsylvania Avenue Division Street to Kings Highway City of Dover New Trails Area Limits Responsibility Schutte Park Extend internal trail network City of Dover Fox Hall West/Mallard Pond Pebble Valley Drive to Marsh Creek Lane City of Dover St. Jones River (west side) Silver Lake Park to Legislative Avenue DelDOT 56

Recommendations Summary Signing, Striping, Fencing, and Lighting Road Limits Recommendation Responsibility South State Street Bayhealth to Skull Terrace Signing and lighting DelDOT/Bayhealth Saulsbury Road Gateway Boulevard Install fence, relocate DelDOT/City of Dover pedestrian signal & crosswalk John Hunn Brown Road Luther Village to Target Provide gap in fence City of Dover/Target College Road Jason Street to DSU Add crosswalk, lighting DelDOT/City of Dover North State Street Washington Street Provide mid-block crossing DelDOT South New Street Owens Manor Apartments Re-stripe crosswalk City of Dover New Pedestrian Signals Road Responsibility U.S. 13/Roosevelt Avenue DelDOT U.S. 13/South State Street DelDOT U.S. 13/Webbs Lane DelDOT South State Street/Webbs Lane DelDOT North State Street/Governors DelDOT Avenue/Walker Road 57

Recommendations Summary Identified Maintenance Needs - Repairs Rank Location Limits Maintenance Issue Responsibility 1 State Street North Governors Avenue Uprooted, uneven sidewalks City of Dover/ to Roosevelt Avenue Property Owner 2 Route 8 Path Modern Maturity Center to Potholes/sinkholes in City of Dover/ Greentree Shopping Center shared use path Property Owner 3 Saulsbury Road/ Scarborough Road to Potholes/sinkholes in City of Dover/ McKee Road Route 8 shared use path Property Owner 4 Delaware Avenue 32 & 36 Delaware Avenue Depressed brick sidewalk City of Dover/ Property Owner Identified Maintenance Needs - Clean Up and Trim Location Limits Maintenance Issue Responsibility Delaware Avenue 101 Delaware Avenue Vegetation in sidewalk Property Owner Route 8 Independence Boulevard Low hanging tree limbs Property Owner to Kenton Road Route 8 Modern Maturity Center Vegetation in trail Property Owner McKee Road Walker Road to College Road Vegetation in trail Property Owner Scarborough Road Bridge over railroad tracks Debris along pathway DelDOT Curb Ramps Road Responsibility Kings Highway/American Avenue DelDOT/City of Dover 58

Public Involvement The City of Dover’s Pedestrian Plan was discussed and presented at the following public meetings: Bicycle and Pedestrian Subcommittee February 11, 2014 October 7, 2014 April 1, 2014 November 4, 2014 May 6, 2014 December 9, 2014 June 3, 2014 January 20, 2015 July 1, 2014 February 3, 2015 September 2, 2014 March 3, 2015 Public Workshops June 26, 2014 - At the initial Public Workshop, held at the Dover Library, information regarding existing conditions/ facilities and identified pedestrian needs was presented to the public. Attendees were given the opportunity through a mapping exercise, questionnaires, and public comment forms to identify specific pedestrian needs and potential im- provements throughout the City. Representatives from the City, DelDOT, and the MPO provided staff assistance. January 20, 2015 - At the second Public Workshop, held at the Pitts Recreation Center, the final recommendations from the Plan were presented to the public. Attendees were given the opportunity to provide comments on the final recom- mendations, as well as identify additional pedestrian needs and potential improvements. Representatives from the City, DelDOT, and the MPO provided staff assistance. Safety Advisory and Transportation Committee City Council 59

Acknowledgements The City of Dover Pedestrian Plan was developed by the following individuals: City of Dover Bicycle and Pedestrian Subcommittee Jim Hutchinson Chris Asay Patrick Gallagher Jayce Lesniewski Kathy Doyle David Moses Tim Slavin City of Dover Planning and Parks & Recreation Department Ann Marie Townshend Carolyn Courtney William Cook Delaware Department of Transportation Anthony Aglio Sarah Coakley Dover/Kent County Metropolitan Planning Organization Rich Vetter Chris Kirby Jim Galvin Kate Layton Endorsed by the Safety and Advisory Transportation Committee on March 23, 2015 Approved by the Dover City Council on April 13, 2015 The preparation of this document was financed in part with funds provided by the Federal Government, including the Federal Transit Administration and the Federal Highway Administration of the United States Department of Transporta- tion. 60