Massachusetts
Bicycle
Advisory
Board
Report

Up: Table of Contents
Previous: Introduction
Next: State Agencies

A Full-Time Bicycle Coordinator and Bicycle Program Office

Transportation projects in Massachusetts usually are conceived at the local level, with coordination of regional planning agencies, and proceed through MDPW district offices to review by a statewide committee. Opportunities for bicycle-friendly design features in roadway construction projects are not always considered. A Bicycle Coordinator's position to review road construction and reconstruction proposals would identify bicycle-compatible roadways in Massachusetts.

The majority of bicycle-related projects in Massachusetts are undertaken by the Massachusetts Department of Public Works, the Department of Environmental Management, and the Metropolitan District Commission. The Bicycle Advisory Board identified over thirty-two million dollars of bikeway projects being planned statewide. There is a need for much greater coordination. Often bicycle-related projects do not link with one another, and do not reflect statewide priorities or appropriate standards for safe design. A Bicycle Coordinator to assist in prioritizing and linking bikeways would be beneficial to bicycling for both commuting and recreation.

States that have taken effective action to improve conditions for bicycling all have a bicycle program office, typically with a bicycle coordinator, engineer and additional staff of one or two persons. (For example: Oregon, Florida, North Carolina).

The Board recommends the establishment of a full-time Bicycle Coordinator's position. The Bicycle Coordinator is to have the responsibility of coordinating transportation planning, construction and reconstruction projects among-the various agencies. The Bicycle Advisory Board will recommend where the position should be located in its final report.

A Bicycle Coordinator's position was in fact created in the Department of Environmental Management at one time, (see State Budget FY '81, Chapter 329, item no 2120-0302) but due to delays in scheduling, it was never filled.

As a stopgap measure until a bicycle coordinator's office is created, to make sure bicycle travel is being considered in transportation projects in Massachusetts, the Bicycle Advisory Board proposed the following amendment to the Transportation Bond Issue (Chapter 15, Acts of 1988) which is now law:

"In planning for the funding of a project, consideration shall be made, to the extent feasible, to accommodate and incorporate provisions to facilitate the use of bicycles as a means of transportation."

Consideration of Bicycling in Transportation Planning

It is extremely important that bicycle travel be considered early on in the design of transportation projects as bicycling for transportation is on the rise in Massachusetts and nationally; and opportunities to facilitate bicycle use are often lost early in the design process.

The Board makes the following specific recommendations for bicycle-related features of transportation projects:

Conformity to AASHTO Guidelines in Facility Construction

The Board recommends the strengthening of the review process so that future bicycle facilities conform to AASHTO (American Association of State Highway and Transportation Officials) Guidelines, to reduce safety problems and to promote efficient bicycle travel.

Greater Recognition of and Planning for On-road Bicycle Use

The Board's consensus is that one of a Bicycle Coordinator's main responsibilities would be to recommend and develop on-road bicyclerelated improvements. The opportunity for such improvements is lost if bicycles are not considered early in the design cycle of a highway construction or maintenance project. Such improvements are generally of low cost and benefit all road users, not just bicyclists. Examples of such improvements include bicycle-safe storm grates; restriping to provide wide outside lanes; intersection improvements for smoother traffic flow; and construction of shoulders, which increase traffic capacity, reduce accidents and cut maintenance costs.

Bicycle-Sensitive Traffic-Signal Actuators

The Board recommends that bicycle-sensitive traffic-signal actuators (vehicle presence detectors) be specified for use in Massachusetts, and recommends further study of them by the Department of Public Works.

Review of Bicycle-Exclusion Policy

The Board agrees to include the statement as written by member John Allen in his memorandum of April 12, 1988 regarding policy on posted exclusions of bicycles from certain roadways (see Appendix 1).

Intermodal Considerations

In many parts of the United States, Europe and Japan, the bicycle's potential is enhanced through.coordination with other modes of transportation.

Bicycling has great potential as a feeder mode for public transportation. Policies and programs which allow bicycles to be carried on public transportation or parked securely at public transportation stations can increase the use of public transportation while reducing parking problems at stations and traffic congestion on feeder roads.

Many such programs have been implemented in Massachusetts; however, there are numerous additional opportunities which remain unexploited.

All major Massachusetts ferry systems carry passengers' bicycles for a nominal charge. It is possible to travel by ferry from Boston to Hingham, Provincetown or Martha's Vineyard; from Hyannis, Woods Hole and New Bedford to Martha's Vineyard and Nantucket. Boston Harbor ferry service has recently been expanded to include a link between the Boston waterfront and East Boston/Logan Airport, bridging a gap in the bicycle-route network which has existed since the harbor tunnels replaced earlier ferry services decades ago.

The Cape Cod Railroad, provided in recent years, a good example of the potential of bicycles and public transportation. This railroad, connecting Braintree and Hyannis, regularly carried passengers' bicycles in a baggage car. The MBTA allows bicyclists who have enrolled in a special permit program to take their bicycles with them on rapid-transit lines but only on Sundays. This program interfaced with the Cape Cod Railroad at the Braintree Red Line stop.

Bicycle parking facilities are available at many MBTA stations, though the quality of these facilities varies widely.

Amtrak will transport crated bicycles, though only on trains which have baggage cars. The passenger must buy an Amtrak box at the station for the nominal charge of $4.00. Amtrak is in the process of reevaluating this policy and is currently, as an experiment, allowing uncrated bicycles on some of its trains in the western United States, as is done in most of Western Europe.

Most Massachusetts intercity bus lines will transport uncrated bicycles on a space-available basis when there is an empty baggage compartment under the bus. This service is not completely reliable, however, because sometimes all baggage compartments are in use, and some bus companies, notably Greyhound, have a policy requiring bicycles to be crated for shipment. However, Greyhound does not supply boxes, making it impractical for a bicyclist to ride to the bus station.

All commercial airlines will transport bicycles. Policies vary. Most airlines require boxes, but enough provide boxes so it is usually possible to obtain one at a major airport.

The major areas in which improvement are needed are:

• A policy of recognition and encouragement of the way bicycling and public transportation support each other. All other improvements follow from this policy.
• Recognition of the special importance of public transportation where it bridges sections of the road network where bicycles can not travel. To give an example, bicycles can not travel in the Boston harbor tunnels. For this reason, the cross-harbor ferry service is especially important to permit bicycle access to and from East Boston and the Airport.
• Parking at public transportation facilities. This is generally long-term parking for commuters who will be away all day or out-of-town travelers who may be away for even longer. Secure parking is crucial in these cases. Bicycle racks within the view of a parking attendant should be available.
• Information for bicyclists on routing in and out of major public transportation facilities such as airports. For example, it is possible to get in and out of Logan Airport on a bicycle, but no maps or route signs at the airport or in airport pamphlets indicate the bicycle route to East Boston streets or to the cross-harbor ferry. The route is different from the one motorists use, which leads to a limited-access highway.
• A policy forbidding loss of bicycle access to public transportation facilities. As an example, there is some threat that the upcoming third-harbor-tunnel project might close off access from the cross-harbor ferry to East Boston streets and from East Boston streets to the Airport. Either of these possibilities would seriously discourage intermodal bicycling, by preventing people from riding to the airport and East Boston.

Dissemination of the Board's Findings

The Board is concerned that its recommendations be disseminated to constituencies with an interest in bicycling: for example, statewide organizations of bicyclists, police safety officers, educators and the statewide planning community. The Board's recommendations should be distributed in writing, and also various Board members have agreed to give presentations at statewide conferences of these organizations.

The Board intends to distribute bicycle safety, education and enforcement materials to the following organizations:

• Massachusetts Safety Officer's Association
• Parent and Teacher Organizations
• Department of Education
• Local School Committees
• Retail Department Stores
• Criminal Justice Training Council
• Bicycle Shops

The Board recommends the preparation of information on bicycle laws, and the basis for those laws, along with accepted rules for bicycling, to be distributed to college students as part of the registration materials for entering students. The Board intends to prepare the materials, try to provide bicycle discount coupons to entice students to read the materials, and forward them to schools for distribution.

Bicycle-Safety Media Events

The Board recommends the strengthening of a program throughout the Commonwealth to bring about a safer climate for all users travelling under their own power. The program should include but not be limited to the following:

• public service announcements on television and in newspapers identifying the rights and responsibilities of all road users emphasizing those affecting bicyclists.
• designation of May of each year as bicycle month and coordinate events and activities among State agencies.

Establishment of Role Models

The Board recommends the establishment of a "role-model campaign" in which responsible bicyclists would sign a pledge to obey all the traffic laws of the Commonwealth and be presented with a distinctive helmet at media events in May of each year to coincide with the proposed Bicycle Month.

Collection of Data and Research

The Board recommends continuing data collection and research to monitor patterns of bicycle usage and accidents, as a basis for future transportation planning decisions.

Statewide, Voluntary Bicycle Registration

In order to improve the recovery of stolen bicycles, and to aid police in the investigation of crime, the Board recommends a statewide bicycle registration program funded by registration fees.

Bicycle registration programs are presently handled by towns and cities, with little coordination between them. If a stolen bicycle is recovered outside the town in which it was registered, there is little hope of identifying it. This problem took on a tragic dimension recently in Rhode Island when the bicycle belonging to a missing boy was found in a neighboring town. Police were unable to identify it for twelve hours. It later turned out that the boy had been murdered, and that failure to identify the bicycle had delayed the investigation.

Statewide registration can reduce such problems and also provide funding for bicycle programs. Such registration should be voluntary; the incentive of improved recovery rates for stolen bicycles has made it succeed in the several states where it has been tried, notably Wisconsin. Mandatory registration, on the other hand, has been generally unsuccessful in the United States.

Registration could be carried out through the cities and towns, or through the National Bicycle Registry, a private company which could work under contract to the cities and towns. A central data bank is essential for this registration plan to be successful. The means for implementation are still under discussion.

A Steady Source of Finding for Bicycle Programs

The Board points out the need for a steady source of funding for bicycle-related governmental programs and projects. Potential sources include the statewide registration program (see above); equitable tolls for use of facilities such as toll bridges; and a State budget item for the Bicycle Coordinator's Office. Board member Alan McClennen has offered to carry out further research into funding sources. Board members pointed out that.sales taxes on bicycle equipment purchases already contribute to the State's revenues, justifying an amount being set aside for bicycle programs.

The Statevide Comprehensive Outdoor Recreation Plan

This comprehensive open space and outdoor recreation plan entitled "Massachusetts Outdoors: For Our Common Good 1988-1992" which was undertaken by the Executive Office of Environmental Affairs, with the help of an advisory committee, supports our recommendations for a Bicycle Program Office.

Recreation activities in highest demand in Massachusetts are water-based and trail-oriented activities, thus requiring access to water or a network of trails, bikeways and paths. Bicycling is a highly popular activity and is pursued close to home, often on municipal streets. The development of bikeways or bike trails and designated bike routes with appropriate improvements would improve access to opportunities for bicycling in attractive surroundings. The improvement of trail systems would also meet the needs of many walkers, joggers and runners. Since participation in these trail-related activities is high and often takes place close to home, local and State government will need to join forces to be effective in providing well-placed and adequately designed new bicycle opportunities throughout the Commonwealth.

The Bicycle Advisory Board recommended the following policies that were included in the 1988-92 Statewide Comprehensive Outdoor Recreation Plan entitled "For Our Common Good".

The Department of Environmental Management and the Metropolitan District Commission will work with bicyclists' organizations, the Bicycle Advisory Board and the Statewide Trails Committee to develop a policy for off-road bicycle use on State lands.

• The Department of Environmental Management will work with the Executive Office of Transportation and Construction to develop a stable source of funding for printing the Massachusetts Bicycle Map.
• The Department of Environmental Management will consider the feasibility of setting aside primitive campsites at state parks for hikers and cyclists, at reduced rates, to encourage bicycle tourism in the State.
• The Department of Environmental Management will prioritize road improvements at major recreation sites, to provide wide lanes or paved shoulders where traffic is heavy to improve traffic flow and pedestrian and bicycle safety.
• The Department of Environmental Management will work with the Bicycle Advisory Board to coordinate bicycle projects with all State agencies and seek funding for an interagency bicycle office. This office would develop policies and actions for statewide bike trails, facility maintenance standards and develop and distribute rules and regulations for safe bicycling.
• The Department of Environmental Management, in cooperation with private interest, will conduct a feasibility study for the funding and development of a velodrome/bicycle track for statewide recreational and competitive use.

Support for Measures Against Drunk Drivers

The Board supports the Governor's efforts and other initiatives to combat drunk drivers, who are implicated in a large percentage of serious and fatal bicycle accidents.

Bicycle Education, Enforcement and Safety

The Board recommends that the Registry of Motor Vehicles continue to include a section on bicycling, and questions and answers related to bicycle law and safety, in future driver's manuals and examinations.

The Board also makes the following recommendations for educational programs:

Bicycle Education in Elementary Schools

The Board recommends the Department of Education seek funding to fill the vacant Director of Physical Education position to carry out the statutory mandate of Chapter 69 Section 1A. If it is not possible to fill that position due to budgetary constraints, the Department of Education, at a minimum, should provide bicycle education materials to elementary schools in Massachusetts, and encourage the teaching of a bicycle-safety course during a physical-education class. The Board would prepare the materials.

Bicycle Programs at Colleges and Universities

The many institutions of higher education in Massachusetts pose a particular challenge and opportunity for bicyclist education. Bicycling as a means of transportation is affordable on a student budget; many colleges and universities place restrictions on student driving or have a limited number of automobile-parking spaces for students. For these reasons, among others, colleges and universities tend to be centers of bicycling activity.

This situation brings major benefits and a few problems for the institutions and the surrounding communities. Student transportation by bicycle saves colleges and universities the space and expense of parking for automobiles. Communities benefit from the ability of students to patronize businesses which they can reach by bicycle, and from the reduced traffic congestion and parking demand compared with student use of automobiles.

On the other hand, student bicyclists often violate traffic laws, sometimes have accidents, and always create a need for bicycle parking and bicycle routes both on and surrounding the campus. Often, this is a "silent problem" -- one that is not addressed in an organized way either by the institution or by the community. Yet it has its costs. Most colleges and universities carry health insurance for their students, and maintain campus police and ambulance services. Reducing bicycling injuries can save money on these services.

Fortunately, colleges and universities have a special ability to influence their students' activities, both on campus and in the surrounding community. Colleges and universities can easily distribute information to students and can impose rules which go beyond the requirements of the law.

Elements of a program to improve the safety of college bicyclists would include:

• Information on bicycling to be distributed with registration packets. This would include information on riding technique, on bicycle resources such as bike shops and parking areas, and on campus regulations and traffic laws which apply to bicyclists.
• A requirement that all university-affiliated bicyclists wear hardshell helmets when riding on campus.
• Training of campus police in bicycle enforcement, and assigning a bicycle detail.
• Integration of planning for bicycle routes and bicycle parking into campus development projects.
• Cooperation and consultation with the community in enforcement and in planning for bicycle traffic.

The Advisory Board recommends the development of a pilot program incorporating these elements, to be tried out at one or more campuses. This program would become the basis for training and implementation of similar programs at other campuses throughout the state.

This program would improve bicycling conditions for student bicyclists; but as these student bicyclists are future community leaders, they could be expected to expand understanding of bicycling in the communities where they settle after graduation.

Bicycle Law-Enforcement Program

The Board recommends that the Criminal Justice Training Center vigorously seek funding to teach a course in bicycle law enforcement to Massachusetts Police Officers. This course could be modeled after the very successful program taught in Jacksonville, Florida.

The Board proposes the following steps to make it easier for police to enforce traffic laws as they apply to bicyclists:

• revision of statutes relative to bicyclists providing identification when stopped by police.
• increase in penalties which are now much too low.
• pilot bicycle-law-enforcement programs in communities where there is heavy bicycle use; notably, communities with colleges and universities such as Cambridge and Amherst. Cooperation among state, local, college and university police departments in these communities is necessary to carry out these programs.

Regulation of Bicycle Couriers

The Board recommends mandatory licensing of bicycle couriers, with an education program and license test, since the increase in use of bicycles by couriers in major cities has led to major conflicts between couriers and other street users, especially pedestrians.

Bicycle Rules of the Road

The Board supports the following up-graded Bicycle Rules of the Road as provided by the Registry of Motor Vehicles and discussed at our November 1988 meeting:

Because the roads have to be shared by many people and vehicles, common rules have been developed so that road users will generally know what to expect from others sharing the road. Massachusetts' Law treats bicycles as vehicles and allows bicyclists to use all streets and roads in the State except expressways and limitedaccess highways where signs prohibiting bicycles are posted. Under

-the law bicyclists have the responsibility to follow the same rules of the road as motorists.

The top cause of bike-car accidents is bicyclists riding on the left side of the road (against traffic) . Most bike-car accidents (51%) happen at intersections. Another big cause of accidents is bicyclists (and motorists) pulling out of driveways into traffic without stopping to look. When bicyclists or motorists do something unexpected or unpredictable, they are risking injury to themselves or others. In other words, bicyclists are expected to be predictable on the road. Here are the main Rules of the Road you'll need to ride predictably:

1. Ride on the right with the flow of traffic. Pass on the left like any vehicle operator. You may pass on the right but use extreme caution because drivers do not expect you there.
2. Ride single file, and in a straight line. Do not weave in and out between parked cars. Before changing lane position, LOOK BACK to make sure it is safe.
3. Stop at stop signs and red lights. Obey all other traffic signs and signals, too. Yield right of way at a stop sign or when making a legal right turn on red.
4. Before turning, signal by hand, LOOK BACK and change to the appropriate lane position. You may use either hand for a righthand signal. Make a left turn from the center of the road, or you may walk in the crosswalk as a pedestrian.
5. Give the right of way to pedestrians.
6. Give a clear warning (bell, horn or voice) when passing pedestrians or other cyclists or whenever needed for safety.
7. Never carry passengers except in an approved child seat or trailer.
8. Check your brakes often.
9. If you ride at night, equip your bicycle with a white headlight, red taillight or rear reflector, pedal reflectors and reflective material on both sides. You need lights even when riding under streetlights, because reflectors light up only for drivers with their headlights aimed straight at you.
10. Do not adjust handlebars above your shoulders or alter the front fork of the bike.
11. Do not ride on express or limited access highways where signs prohibiting bicycles have been posted.
12. You may ride on the sidewalk outside business districts unless your city or town prohibits it, but you must give right of way to pedestrians.

Under Massachusetts law police officers may give a warning notice or a ticket to bicyclists who fail to follow the rules of the road. Wear your helmet: Three out of four fatal or disabling injuries in bicycle accidents are head injuries. A helmet is very cheap insurance against these injuries.

Bicycle Child Seats and Trailers

Special attention needs to be paid to child seats and trailers, which are involved in an increasing number of bicycle accidents. The Board recommends that both the child and the adult who is riding the bicycle wear hardshell helmets. These are now available in the small sizes and light weights needed for small children. At least one state, California, requires helmets by law for children carried in child seats. Every child carrier seat should be equipped with an effective seat belt, and should have a footguard to prevent the childs' feet from contacting the bicycles spokes. Every bicycle trailer used to carry passengers should have an effective seat belt and should be constructed to prevent the child's hands or feet from coming in contact with its wheels. "Roll bar" construction is also desirable and possible in a trailer. Trailer brakes are highly desirable but currently unavailable. Also, consideration should be made for special lighting and reflectorization requirements for trailers used at night, whether they carry passengers or cargo. Every trailer should have at least one red rear reflector or taillight. A trailer wider than the bicycle it follows, should be equipped with white or amber marker lights at the front and red taillights or reflectors at its rear corners. Most trailers are supplied with rear reflectors but not with front marker lights, which are essential to safe night-time use, especially on bikepaths.

Next