Chapter 6.1
Community Health and Safety

• ALL
• Remove Code Barriers
• Create Incentives
• Fill Regulatory Gaps

Pedestrian Connectivity through Culs-de-sac

INTRODUCTION

To aid pedestrian mobility, some local governments have begun passing ordinances that direct pedestrian connections, sidewalks, pathways, or “cut-throughs” at the terminus of culs-de-sac. Connectivity through culs-de-sac can help link residents to adjacent culs-de-sac, open spaces, parks, or other near-by point of interest.[1] Some points of interest the developer and local government may consider include existing streets, trails, recreational facilities, schools, or commercial areas.[2]

Building and linking sidewalks through the end of culs-de-sac can encourage diverse types of transportation.[3] Ordinances requiring “cut-throughs” reduce travel time and distance for pedestrians and bicyclists to areas in and out of neighborhoods.[4] A pedestrian’s willingness to walk as opposed to drive is often measured in number of minutes per walk.[5] By increasing connectivity with “cut-throughs,“ a local government can reduce the time it takes to get from point A to point B and promote pedestrian mobility.

Schools, shopping centers, and community centers are highly desirable and practical pedestrian destinations. These locations, however, often require motorized transportation because culs-de-sac increase the distance considered comfortable for walking.[6] As a result, streets and sidewalks in many existing developments are not designed for rapid pedestrian ingress or egress, encouraging people to resort to driving.[7] Pedestrian connectivity helps decrease the time and distance required for pedestrians to arrive at their destination, thereby encouraging walking.[8]

Ordinances mandating and encouraging pedestrian walkways on culs-de-sac begin with legislation[9] and may be incorporated into the local government’s master plan.[10] The ordinances are often located in subdivision codes, requiring developers to include more pedestrian connectivity measures for approval.[11] For pedestrian connections, the ordinances may require public easements, tracts of land, and right-of-ways.[12]

The ordinances establish a process for review and approval of potential walkways, frequently consisting of a hearing body or planning director to determine compliance or exemption.[13] The ordinance may be drafted to allow the decision maker to consider many characteristics in formulating a decision or in granting a waiver.[14] Topography, environmental concerns, and other land use conflicts are often considerations that would allow an exception to connectivity.[15] Some ordinances include guidelines that reference other requirements or parts of the code, such as an engineering design manual.[16]

The ordinances also describe acceptable walkway features, including safety, multi-use design (such as for pedestrians, bicyclists, and disabled people), surface cover, and size (e.g. width and depth) (for a more detailed explanation on specific sidewalk characteristics, see Minimum Width and Buffer Requirements for Sidewalks brief).[17] An ordinance can also list where cul-de-sac walkways are required based on the distance to surrounding walkways or blocks.[18] For example, a code may mandate that paths be placed between any proposed trail or recreational facility within 500 feet from any point on the cul-de-sac.[19] Another option is to require paths in the middle of long blocks defined over a set number of feet.[20]

Different land uses of surrounding areas can also impact whether a “cut-through” would be beneficial.  Linking a cul-de-sac to any existing school within a set distance of any part of the street can encourage children to walk to school (for more on encouraging children to walk to school see Create Safe Routes brief).[21] Similarly, ordinances can consider commercial areas within a greater radius to encourage alternative modes of transportation.[22] These ordinances can also be forward looking and may consider cul-de-sac walkways based on projected future development to ensure effective pedestrian connectivity.[23] In practice, these ordinances set conditions so that current walkways link into planned walkways in order to derive the most benefit.[24]

Local governments may also include a requirement for developers to draw the pedestrian walkways on their proposals or tentative maps.[25] The visual depiction presents an opportunity for the municipality, developer, and surrounding property owners to discuss the merits of the walkway or make other proposals for the walkway. The stakeholder discussion increases the likelihood that the “cut-through” will have the desired effect and be implemented.

EFFECTS

Culs-de-sac break-up neighborhoods and decrease pedestrian connectivity.[26] Because of decreased connectivity, many local governments prohibit culs-de-sac unless no other option is available.[27] Mandating pedestrian connectors through culs-de-sac can decrease the negative effects of culs-de-sac and serve members of the subdivision and community.[28] These pedestrian connectors provide safer walks, potentially increase mass transit use, and bring financial benefit to neighborhoods.

Sidewalk connections at the end of culs-de-sac provide a safe route of travel for pedestrians and bicyclists.[29] In areas that use sidewalk connectors, pedestrians are able to walk between their origin and destination in a more direct route.[30] Without these connections, some trips will be too long for comfort or dangerous and the pedestrian will travel by automobile instead of walking.[31]

Neighborhoods that are considered walkable have community services within a 5-10 minute walk from residential areas.[32]  These numbers are often how public transit companies determine where to put stops and hubs.[33]  By providing “cut-throughs” and giving pedestrians shorter routes, local governments can increase walkability scores (connectivity) and potentially increases the use of mass transit systems.[34]

Financial benefits of pedestrian connectivity occur at several levels. Developers and local governments may see benefits of higher home values, which may offset the financial cost of installing the sidewalks through the culs-de-sac.[35] More pedestrian friendly areas result in high home values.[36]  The local government then benefits from higher home values through increased tax assessments.[37] For culs-de-sac near commercial areas, the increased connectivity provided by a “cut-through” may also help to increase pedestrian foot traffic near local businesses.

EXAMPLES

Surprise, AZ

Surprise is a medium sized city with a population of 128,000, which covers 108 square miles, and has a desert-mountain climate.[38] The City prides itself as being a recreational retreat.[39]

Surprise highlights the importance of connectivity as well as moving goods and services throughout its code.[40] The City accepts that culs-de-sac are not conducive to connectivity, but that they may be the best option in certain situations because of environmental or terrain constraints.[41] The City allows for exceptions for the “cut-throughs” where topography or other constraints exist.[42] The ordinance directs the “cut-through” link with other trail systems.[43] Additionally, the ordinance requires walkways to extend to the boundary of the subdivision and to connect with forecasted streets and adjacent undeveloped land.[44]

To view the provisions, see Surprise, AZ Code of Ordinances § 122-21 (2009).

Ontario, OR

Ontario is a smaller city with a population estimated to be around 11,000.[45]  The city is approximately 5 square miles.[46]

The city of Ontario addresses the connectivity issue of culs-de-sac through preliminary plan and final plat approval.[47] Requirements begin by encouraging through streets unless special circumstances make them infeasible.[48]  If a cul-de-sac is necessary, the section requires an access-way connecting the end of the cul-de-sac to another street or neighborhood activity center unless land conditions would prevent it.[49] The access-way must be ten feet wide and incorporate lights or stairs, if needed, which meet American’s with Disabilities Act requirements.[50] Finally, developers are required to locate the access-way within a 20 feet wide right-of-way easement.[51]

To view the provisions, see Ontario, OR Planning and Zoning Development Standards § 10C-25.04.003 (2018).

Los Angeles County, CA

Los Angeles County is located on California’s Southwestern Pacific Coast. The County’s population is 10 million and covers 400 square miles.[52]

The County provides a thorough ordinance on pedestrian walkways for culs-de-sac in the subdivision design standards.[53] The ordinance states a concise intent for its walkways that focuses on the utility of the pathway considering things such as safety, form, and function.[54] When culs-de-sac are proposed, a minimum eight feet wide pedestrian or bicyclist pathway that connects to an existing street, trail, recreational area, commercial area, or school must be included.[55] The County gives several examples to negotiate an extensive list of possible scenarios a developer may encounter.[56] The ordinance focuses on current and future developments in linking popular destinations (schools, other neighborhoods, shopping, and recreational facilities).[57]

To view the provisions, see Los Angeles Cty., CA Code of Ordinances § 21.24.210(D) (1945).

ADDITIONAL EXAMPLES

Indianapolis, Marion Cty., IN Code of Ordinances § 741-303(B)(3)(h) (2015) (requiring a 15-foot wide pedestrian access/public utility easement connecting ends of culs-de-sac to the closest street or pedestrian sidewalk).

Carnation, WA Code of Ordinances § 15.16.050(H) (2008) (requiring pedestrian access or bikeways to be provided when culs-de-sac are necessary that connect to an adjacent cul-de-sac, street, park, or open space).

Northfield, MN Code of Ordinances § 3.7.7 (2017) (requiring trails connecting the end of culs-de-sac to other streets or developments.  Trail is located in 20-foot wide right-of-way easement).

Atlantic Beach, NC Code of Ordinances § 18.5.2 (2018) (directing pedestrian pathways to connect to nearest street, collector street, or cul-de-sac in adjacent neighborhood).

ADDITIONAL RESOURCES

City of Madison, Pedestrian Transportation Plan Chapter 3, (September 1997), https://perma.cc/S4LJ-8EJ6.

Burlington, NC Steering Committee, Burlington, NC, Pedestrian Master Plan, (2012),

https://perma.cc/63WN-4DM8.