HomeMy Public PortalAboutBike_OpsINTRODUCTION48INVENTORYRECOMMENDATIONSFACILITIES GUIDEIMPLEMENTATIONOPERATIONS ANDMAINTENANCEOperations and Maintenance
INTRODUCTION
An important part of any bicycle and pedestrian
master plan is ensuring that the existing and
proposed improvements are cared for and
maintained. One of the most important reasons to
properly maintain the facilities within the system
is to maximize safety while minimizing the local
landowners concerns regarding liability. Planning for
the maintenance and management of the bicycle and
pedestrian system will ensure safety and will prolong
the life of the facilities within the system. Budgeting
and planning for the maintenance of the existing and
proposed facilities is imperative for the long-term
success of the system.
The operations and maintenance plan for the
Richmond Bicycle and Pedestrian Master Plan
provides guidance for tasks that need to be
undertaken by the managing agencies and project
partners. This plan provides a series of work items
that need to be completed in order to maintain
the system as an attractive, safe and enjoyable
amenity. The following defines key aspects of
facility management beginning with operational
policies, followed by facility assessment, maintenance,
maintenance costs, management, safety and liability
policies, and funding alternatives for the operations
and maintenance tasks.
OPERATIONS
The operation of the bicycle and pedestrian systems
includes day-to-day management of the system.
This includes law enforcement, map and brochure
updates, marketing, conducting special events, and
other functional tasks.
Hours of Operations Policy
With many of the existing and proposed facilities
within the system being incorporated into the
living and working areas of the City, there will be
no specific hours of operation for these facilities.
However, the greenway and trail facilities will be
operated as a non-lighted (except where existing
lights exist and are maintained) system of facilities
and shall be open from dawn to dusk, 365 days a
year. Where users are found using the non-lighted
portions of the greenways or rail-trail, they can
be deemed in violation of these hours and may be
subject to fines. The City will need to coordinate with
the Police Department on the level of enforcement
and methods to enforce this policy.
Care and Management Policy
Richmond Parks and Recreation Department and
the Richmond Street Department will be responsible
for the care and upkeep of the facilities and the
surrounding land, drainage features, signage,
fencing, bridges, trail heads, landscape plantings
and facility amenities such as benches and trash
receptacles. A management and maintenance policy
detailing the responsibilities of each department
in terms of bicycle and pedestrian facility care
shall be implemented to avoid overlap or gaps in
maintenance. Gaps in care are the largest complaint
of residents with existing facilities across the nation.
Fencing and Vegetative Screening Policy
The City of Richmond will work with adjacent
landowners on an individual basis to determine
where fencing and screening is needed to buffer
adjacent land from the bicycle and pedestrian
facilities. In rare occasions, fencing and screening
may be provided outside of the property owned
by the City of Richmond. Private landowners will
be responsible for maintaining these elements when
they are located on private property. This should be
part of the design consideration when installing these
elements outside of the public right-of-way.
Trail Users
One of the goals when planning the bicycle and
pedestrian system was to provide facilities and
routes that would accommodate all users. However,
there may be occasions where multiple users are not
appropriate. In such instances, such as with bike trails
and hiking trails, the City may want to limit the user
type allowed on the trail with signage. Although
enforcing these limits may not be possible on a
regular schedule, providing signage will reduce the
number of conflicting users on the facility.
Established guidelines provide for the following
policy recommendations concerning users on the
system:
Multi-use Trails
• Bicyclists should yield to pedestrians
• Access for motorized vehicles on trails is limited
to authorized vehicles such as maintenance
vehicles and emergency response vehicles
• Unauthorized motorized vehicles such at dirt
bikes and ATV’s are prohibited on multi-use trails
• Wheelchairs are allowed on multi-use trails
when used solely for use by a mobility impaired
person.
49CITY OF RICHMOND Bike and Pedestrian Master Plan
Environmental Resources Policy
Habitat enhancement and control can improve
aesthetics, help prevent erosion, and provide for
wildlife habitat. Habitat control involves mitigation
of damage caused by wildlife. Where possible,
environmental preservation and restoration should be
included in the bicycle and pedestrian facility design,
especially along greenways and naturalized trails.
Policy measures to enhance environmental resources
include:
• Plant vegetation, such as trees and shrubs
• Take preventative measures to protect.
environmental features from wildlife, such as
installing fencing around sensitive or newly
planted materials.
• Apply herbicide to eliminate any problem plant
species, such as poison ivy or crown vetch.
• Apply herbicide to maintain facility edges and
prevent encroaching vegetation, such as along
trails and sidewalks.
• Deter interaction between users and wildlife such
as feeding the wildlife and people gathering
wildflowers.
• Prohibit and sign litter and dumping along
facilities. Users violating the littering laws may
be issued a citation.
• Dogs should be kept on leashes at all times.
Emergency Response
Emergency services to the trails and facilities will be
provided by various agencies depending on location.
In many cases, the closest public safety agency will
respond, which might include county sheriffs, town
police or parks department personnel.
Closure Policy
There will be times when specific facilities will need
to be closed for repair or during emergencies such
as flooding. When the facilities are closed signs shall
be posted and information regarding the closing
shall be posted on the City and Parks Department
websites. Alternate routes shall be designated and
signed. Barriers shall be installed to prevent access
to the closed portion of the facility. Due to safety
and liability issues, individuals who are found using
the facilities while they are closed are subject to fines
and prosecution.
ASSESSMENT
Create a Facility Assessment and Repair Sheet
A facility assessment process should be conducted to
ensure all facilities are inventoried and the condition
documented prior to performing maintenance tasks.
A facility assessment and repair sheet should be
developed to keep this process consistent across
facility types and through the years as facilities
age. The form should include information needed
to document needed maintenance and repair
locations and types of repair. Items to be included
on the form include: maintenance issue description,
strategies to repair, notes on the trail or facility
condition, space for sketches of the problem and/or
solution, and action to be taken. The assessment and
repair sheet should be completed on-site and should
include the date conducted and name of person
conducting the assessment. Preliminary training
should be given to ensure consistency between staff
members conducting the assessments.
Walk or Ride the Bicycle and Pedestrian
Facility
Assessment of the facilities should include walking
and riding the facility. Facilities should be inspected
on a routine basis to identify current conditions,
drainage issues, erosion, and other areas of
needed repair. In addition, amenities such as
fences, restrooms, kiosks, and wayfinding should be
assessed. Walking or riding the facility will allow
the person conducting the assessment to perform a
more accurate assessment in terms of facility use and
safety.
Coordinate with Land Owners
When possible, discuss any proposed repairs or
maintenance with adjacent land owners to the
facilities prior to scheduling the repair work. The
assessment sheet will help describe the problems to
the adjacent land owners and describe the repairs
that will take place.
INTRODUCTION50INVENTORYRECOMMENDATIONSFACILITIES GUIDEIMPLEMENTATIONOPERATIONS ANDMAINTENANCEOperations and Maintenance
Work Crews
Special training should be provided to maintenance
crews responsible for maintaining the facilities
including how to identify potential hazards, most
efficient methods of repair, and types of repairs that
can be performed by in-house staff. Issues identified
by the maintenance crews should be included in the
overall maintenance and repair budget and schedule
for the City Departments.
MAINTENANCE
The maintenance of the bicycle and pedestrian
system includes many activities involved in keeping
the facilities in a safe and usable condition. This
includes several tasks ranging from mowing and
brush removal to repair and reconstruction of
facilities. Lifetime maintenance will place ongoing
costs on the different agencies maintaining the system
and should be considered when planning and funding
new and existing projects.
A guideline for the most commonly performed tasks
should be developed by the agency responsible
for performing for both annual and seasonal
maintenance. The recommendations should be
reviewed on an annual basis and adjusted as
experience determines more or less frequent
applications are needed. Maintaining safe facilities
will be the determining factor when scheduling tasks
as outlined below.
Mowing and Spraying
Mowing along trails and other facilities should occur
on a regularly scheduled basis. Mowing can be
used to maintain certain types of vegetation such as
turf and invasive species control. Schedule mowing
and spraying regularly, based on knowledge of
how fast such growth occurs to that facility so that
it is not significantly inhibited. With some types of
fast-growing species, it may be necessary to consider
the use of herbicides. Special precaution and
certified training must be included with any spraying
operations. Environmentally safe weed removal
methods should be used, especially along waterways.
Facilities with mowed areas should have four (4) feet
mowed from the edge of the facility.
Tree and Brush Trimming
Trimming is performed to maintain clearance for
users of the bike and pedestrian facilities. Workers
performing the pruning must be trained in proper
pruning to provide aesthetic treatments while
protecting the health of the vegetation. Such work
is usually done with clippers, string trimmers, and
chainsaws. In some situations, it may be necessary
to clear root systems or remove embedded plant
material with more industrial equipment. Operators
must have proper training and education to operate
machinery in a safe manner. Limbs should be
trimmed four (4) feet back from the facility. In high
use sections of trail or pathway use, dead or dying
trees that have the possibility of falling on the facility
should be removed.
Debris Removal
Removal of debris is one of the fundamental needs
of the bike and pedestrian system and is necessary
to provide safe facilities while extending their life
expectancy. Keeping the facilities clear of mud and
sediment, fallen leaves, branches and fallen trees will
increase use while providing a safe environment for
users.
Drainage Control
Proper drainage protects the bicycle and pedestrian
system facilities from erosion damage. Facilities
should be routinely inspected to ensure that
all culverts, dips, bridges, low water crossings,
drainage ditches, and open box culverts are free
of debris and ready to function in the proper
manner especially during the rainy season in the
spring. Routine maintenance is not only necessary
but valuable in terms of labor, material, and money
saved on emergency repairs, and in the number of
days the facility is useable. Erosion repairs should
be made as quickly as possible to prevent further
damage to the facility.
Signs and Other Amenities
Signs, benches, kiosks, bollards and fencing need
to be kept clear to provide safe and aesthetically
pleasing elements along the trail, path or sidewalk.
Amenities that fall into disrepair are more susceptible
to vandals. Prompt repairs are essential to keep
vandalism from becoming a recurring problem.
These items also have life-cycle limits which should be
considered in the annual maintenance budget.
Signs provide both safety and information for users.
They provide users with their location, where they
are going, and the rules to safely use the facilities.
Upkeep of the signage along the system should be a
high priority.
51CITY OF RICHMOND Bike and Pedestrian Master Plan
Graffiti Removal
Prompt removal of graffiti will deter additional
graffiti and other destructive acts to the facilities
within the system. Once graffiti has been reported,
it should be removed as soon as possible. Providing
a system free of graffiti will increase usership by
increasing the perception of safety.
Facility Repair or Replacement
All of the facilities will require repair or replacement
at some time. Repair and replacement should be
closely tied to the inspection schedule. Setting
priorities for the repairs will be a part of the
inspection process. The time between observation
and the repair or replacement will depend on the
nature of the issue. If the problem requiring the
repair is deemed to be a hazard, and will affect the
safety of the user a higher priority will be set. The
time delay will also depend on whether the repair
can be performed by in-house maintenance staff
or if it so extensive that it will require an outside
entity. Some repairs are minor enough in nature that
they can be done with other capital projects such as
resurfacing a bike lane at the same time as repaving
an adjacent street. When repairs are required,
they should meet or exceed the original construction
specifications.
Seasonal Maintenance
Seasonal maintenance tasks should be performed
as needed and include leaf, snow, and ice removal.
When conditions cannot be improved to provide for
safe use, the facility should be closed to prevent the
risk of injury to the user. Designated maintenance
crews shall remove leaf debris, snow and ice from the
facilities. Leaf debris can be hazardous when wet
and special attention should be given to facilities with
higher usage. Ice and snow removal is necessary for
user safety but also to prevent damage caused to
the facility from the freeze-thaw cycle.
• Leaf removal should be done through raking,
blowing and mulching as needed to provide a
clear and safe facility for users and to prevent
any storm water drainage or erosion issues.
• Remove snow and ice from the facilities by
shoveling, picking, salt and sand as soon as
possible after a storm.
COST OF OPERATIONS AND MAINTENANCE
Operations and maintenance budgets should take
into account annual and long-range maintenance
over the life cycle of the facility. Annual operations
and maintenance costs vary depending on the facility
to be maintained, level of use, location, and standard
of maintenance. The following estimates should be
used for reference only as these costs will fluctuate
depending on actual conditions of the facilities within
the town. The estimates include field labor, materials,
equipment and administrative costs and are based
on national industry standards.
Paved Shared-use Path
Annual: Depending on the intensity of use and
development, the number of associated amenities
and the standard of care the typical cost to maintain
a paved shared-use path ranges from $4,000 to
$15,000 per mile. Volunteers may absorb all or
part of this cost.
Long-Range: Asphalt pathways usually have a 10-
12 year life. An overlay is usually required at this
time with a complete resurfacing after 20-25 years.
Concrete paths have a life cycle of twice as long.
Natural Surface Path
Annual: Maintenance costs range from $200 to
$2,000 per mile per year depending on usage and
level of development. Volunteers are valuable in
reducing this maintenance cost and can perform
many of the required tasks.
Long-Range: The day-to-day maintenance
performed on natural surface trails is usually
adequate for even the long-range maintenance of
the trail. Volunteers can also provide much of the
maintenance needed over the life of the trail. There
may be some administrative costs associated with the
natural trails but long-range maintenance costs are
negligible.
Greenway Trail
Annual: Crew sizes can range from 1 to 5 full time
employees once the system is fully developed.
This cost varies widely depending on the level of
maintenance for not only the trail but also adjacent
INTRODUCTION52INVENTORYRECOMMENDATIONSFACILITIES GUIDEIMPLEMENTATIONOPERATIONS ANDMAINTENANCEOperations and Maintenance
properties including stream banks and floodways.
The maintenance costs can range from $3,000 to
$20,000 per mile per year to maintain. Day-to-
day maintenance and monitoring of greenway
facilities should be divided between volunteers and
maintenance crews when possible to lessen the impact
of these fees.
Long-Range: The majority of greenway trails will be
either asphalt or concrete. As such, they will require
the same long-range maintenance as the paved
shared-use path. Greenway trails which experience
regular flooding should be analyzed for a shorter
life cycles.
On-road Bicycle Facility
Annual: It is assumed that the Richmond Street
Department and INDOT will maintain the on-road
bicycle facility system. Additional sweeping will be
required where bike lanes are installed. Additional
attention should be paid to any potholes or other
pavement damage. Regular inspections should occur
every year to assess the condition of roadways with
bike lanes. Maintenance for these facilities can be
included as a part of street maintenance with costs
up to $250 per mile per year.
Long-range: Long-range maintenance tasks for on-
road bicycle facilities include repaving and restriping
when roadway improvements are implemented.
Pavement markings include bicycle lane lines, bicycle
stencil markings, and edge lines. This work should be
included with current street maintenance and would
have negligible costs.
Sidewalks
Annual: Typically sidewalks are maintained by
adjacent property owners with major repairs done
by the maintaining agency. Cracks, surface defects,
tree root damage, and other problems should be
identified on a regular basis and fixed to ensure
that sidewalks remain accessible to all types of
pedestrians. Sidewalk maintenance costs up to $100
per mile per year.
Long-range: Sidewalks will be constructed with
concrete which requires replacement every 50-75
years.
FUNDING OPERATIONS AND MAINTENANCE
Identifying current and future funding sources
specifically for the maintenance and management of
the bicycle and pedestrian system must be done to
ensure the longevity of the facilities. Development of
new facilities should only occur when a plan has been
completed for maintenance of the facility. Several
types of funding sources should be identified and
used in combination to fund the maintenance rather
than relying on one source of funding. This will
lessen the impact when one source has a short-fall.
The following are potential sources for funding the
operations and maintenance of facilities within the
system.
Budget Allocations
The most common source is through budget allocations
of existing departments. As facilities are added
to the system these budgets should be increased to
plan for the continued maintenance and repair of
the facilities. This is usually the base revenue for the
operations and maintenance of the facilities.
Public/Private Partnerships
The development of the new facilities will serve many
public and private entities providing benefits for
multiple departments including floodway and ditch
maintenance, street maintenance, utility access, and
enhancement of adjacent properties such as with
new sidewalk and cycle track development in the
downtown area. These shared benefits may present
the opportunity to share funding for tasks associated
with the up-keep of the facilities. This may include
business and residential association partnerships with
the city.
In-kind Services
In-kind services can be an important tool in funding
the maintenance of the bicycle and pedestrian
facilities. These services might include routine
maintenance performed by volunteers, youth groups,
student labor and seniors. Services might also
include donations of materials and labor.
Revenue from Programming
The Richmond Parks and Recreation Department
should work to capture and direct fees and revenues
that are obtained from facility events and activities
into a fund that can be dedicated to operating and
maintaining the system. Programming events such as
fun-runs, bicycle races and other races can generate
revenues for the bicycle and pedestrian system.
53CITY OF RICHMOND Bike and Pedestrian Master Plan
MANAGEMENT
Richmond Metropolitan Development
Department
The Richmond Metropolitan Development
Department shall act as the lead agency for
implementing the plan. Duties for the Metropolitan
Development Department include carrying out the
recommendations of this plan including applying for
funding and managing the construction of projects.
Metropolitan Development Department staff will also
be responsible for proposing future alternative routes
and working with adjacent communities to coordinate
linkages. The Richmond Planning Department will be
responsible for creating and updating GIS layers of
all network facilities. Planning Department staff shall
provide guidance to developers when implementing
new projects in the town to incorporate proposed
facilities when appropriate.
Richmond Parks and Recreation Department
The Richmond Parks and Recreation Department shall
act as the lead agency for coordinating maintenance
tasks for the bicycle and pedestrian network. Duties
for the Parks Department include conducting routine
maintenance of greenways, naturalized trails and
other bicycle and pedestrian facilities located on
Parks Department property, and overseeing the
safety and operations of all facilities through Parks
Department property. Parks Department staff will
also be responsible for updating and publishing
maps, coordinating community events utilizing the
new facilities and running parks programs to help
supplement the facilities.
Richmond Street Department
The Richmond Street Department shall continue to
oversee the construction, day-to-day maintenance
tasks, and seasonal maintenance tasks of the multi-
use trails adjacent to roadways, sidewalks, bike
lanes and any other bicycle and pedestrian facilities
located within or next to the street right-of-ways.
Indiana Department of Transportation (INDOT)
INDOT should continue to design and build on-road
facilities along with maintaining all pedestrian
and bicycle facilities within the road right-of-
ways that are owned by the state. This includes
paved shoulders, bike lanes, crosswalks, pedestrian
signals, and sidewalks along state roads. Richmond
Metropolitan Development Department should
coordinate with INDOT anytime new projects are
proposed, or when repairs on existing facilities are
scheduled, to implement facilities as proposed on the
master plan.
Richmond Police Department
The Richmond Police Deparment shall act as the lead
agency for enforcement issues regarding the bicycle
and pedestrian system. Law enforcement along new
facilities should be dealt with in the same manner as
on any other public or private land within Richmond.
All local police officers should go through training
courses so that they are up to date with the most
current laws governing bicyclists and pedestrians
in Indiana. Safe use of the facilities will depend
largely on enforcement of policies identified for the
network especially on infrastructure in the outlying
areas with less exposure to surrounding traffic. The
Metropolitan Development Department and the
Parks and Recreation Department should work with
the Police Department to assess current needs and
availability for assisting in enforcement of network
facility rules.
Volunteers
Volunteers can provide services to help offset or
reduce the costs of construction and maintenance for
the system of facilities. The use of volunteer citizen
groups are especially valuable for a variety of
activities such as: trail construction and maintenance,
trash and litter control, exotic vegetation removal,
safety patrols, and educational outreach. Volunteer
groups can work with the City of Richmond and
stakeholders to promote growth and maintenance of
the system. By developing an organized volunteer
program, it will allow people to get involved with
implementation and upkeep of the system. The
Parks Department and the Street Department
shall organize/coordinate volunteer groups for the
facilities maintained by each respectively. Volunteer
opportunities might include:
• Civic groups, youth organizations, or businesses
might want to adopt a section of a trail or
greenway and assume responsibility for litter
patrol and light maintenance.
INTRODUCTION54INVENTORYRECOMMENDATIONSFACILITIES GUIDEIMPLEMENTATIONOPERATIONS ANDMAINTENANCEOperations and Maintenance
• Youth corps can provide assistance for a
variety of labor-intensive projects including trail
construction, stream bank restoration, habitat
improvement, and tree planting.
• Schools and historical societies could help create
and manage web pages, interpretive materials,
curriculum guides, etc.
• High school and college students seeking
recreation or conservation internships could
be recruited to provide a somewhat long-term
commitment maintaining facilities within the
network.
• Law enforcement agencies could train volunteer
‘trail stewards’ to assist with enforcement of trail
policies and rules.
• High school and middle school students wishing to
perform community service might assist in a trail
clean-up day.
SAFETY AND LIABILITY ISSUES
Safety
The owner of a bicycle and pedestrian facility must
provide a safe facility for those that use it. The basic
components of a risk management program include
identification, evaluation, and treatment.
• Identification – regular inspections shall be
conducted to identify potential risks and hazards.
• Evaluation – evaluating the risk to determine the
likelihood of an accident due to the age of the
facility, amount of use, or poor design.
• Treatment – treating the risk or notifying the user.
Treating the risk can include repair, redesign,
increased maintenance or reducing the use of the
facility. Treatment also might include prohibiting
use of the area. Notifying the user can include
posting signs notifying the user of the danger, or
by obtaining waivers from users of the facilities.
Implementation of such risk management
programs will minimize safety problems.
Liability
The public operating agency of the bicycle and
pedestrian facilities should fully understand the
liability associated with the specific types of facilities
and verify that insurance is adequate.
Some techniques which can help limit liability issues
include:
• Implement a volunteer program to report
problems and safety issues.
• Limit facilities to bicycles and pedestrians,
prohibiting motorized use.
• Educate users and adjacent land owners
concerning private property rights through
signage, brochures and outreach.
• Provide private property buffers such as
vegetative screens and fencing where possible.
• Notify adjacent property owners of any
development plans or changes in policy.
• Keep the lines of communication open between
public agencies and adjacent property owners.
Conflict Reduction
When a facility serves multiple user groups there will
be inherent conflicts that will arise. The bicycle and
pedestrian system shall work to reduce these conflicts
where possible. Some conflict reduction methods
include:
• Recognize the different goals of different users
such as hikers and mountain bikers and separate
facilities where feasible
• Plan and design to reduce conflicts between
users and adjacent property owners. Post rules
and regulations concerning reckless and unsafe
behavior, trespassing, littering and disturbances.
• Provide user education through signage,
brochures and media.
• Provide contact information for user input to
report problems, complaints and concerns.
• Promote facility user etiquette
• Develop a plan to respond to any illegal or
disturbing activity quickly.
• Avoid excessive regulatory signage while
providing adequate signage to inform facility
users.