Draft Palau Street Design Manual

DRAFT PALAU STREET DESIGN MANUAL JULY 2020

Prepared By: MIKA YAMAGUCHI ARCHITECTS Mika Yamaguchi Christopher Konieczny

Palau Visitors Authority

Table of Contents

Introduction Street Network & Typologies Key Concepts and Principles Street Design Elements Street Sections Acknowledgments

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Purpose The Palau Street Design Manual will serve as a concise reference that provides visual guidance for the design of new and modification of existing streets throughout Palau. The manual is intended to assist both government and private land owners and leaseholders in envisioning the ideal development of the public right-of-way and adjacent land in lieu of codified standards.

The street sections and design elements put forth in this manual address the existing need for safe, multi-modal transit to include cyclists and pedestrians and to promote visually enhanced public spaces that create comfortable and interesting travel experiences for locals and visitors.

The long-term goals of safe, multi-modal and attractive streets are to reduce polluting emissions by motorized traffic, improve the health of residents with increased opportunities for exercise and air quality, and promote commercial activity through ease of access to local businesses and visitor attractions.

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Existing Challenges

• Poor sidewalk accessibility on main and secondary roads.

• Sidewalks lack proper access ramps and are poorly maintained.

• Narrow right of ways • Motorist-oriented Design • Poor Bike Infrastructure and Lane Network • Poor Placement of Crosswalks and are ineffective for stopping traffic • Drainage Systems create unsafe environment for Pedestrians and Cyclists Edited summary of complete street challenges discussed by Michael Moule, PE, in 2014.

A series of walk audits conducted by Michael Moule, PE, and community members in 2014 revealed areas needing improvement in order to maintain pedestrian and cyclist safety and enhance the user experience.

These challenging conditions discourage multi-modal use of the roadway whether for transit or exercise. The narrow right-of-way is an overarching constraint which is the result of land availability due to private property boundaries or terrain, and finance. Improving this area of design requires that the public and private sectors share an integrated vision for the street and adjacent properties.

The existing right-of-way prioritizes motor vehicles and stormwater systems, where the road is an essential conduit for moving people, goods, and emergency services, and the stormwater systems are critical to environmental management and natural disasters.

This historic prioritization has led to lack of bicycle infrastructure, poor placements of crosswalks and lack of adequate signage, and poor sidewalk accessibility.

Typical drainage systems have also created unsafe obstacles for pedestrians, cyclists, and motor vehicles while the lack of shade structures and trees have led to uncomfortable climate conditions.

With areas for improvement identified, future infrastructure development can address these issues with a comprehensive design approach at the onset of any new project throughout Palau.

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Diagram of Road Network in Palau

PRIMARY

MAJOR CONNECTOR MINOR CONNECTOR

SECONDARY LOCAL

MAIN STREET NEIGHBORHOOD CONNECTOR

Diagram of Street Typologies in Palau

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Palau Road Network and Street Typologies As multi-modal traffic data is collected and land use in Palau is designated through planning and zoning, connecting street typologies can be determined. This may guide in determining land development and building frontage requirements. At this time, this document does not designate identitify all existing streets as particular types, but provides the following descriptions as starting points for street identification in Palau.

Street Identification Three classifications of roads are identified for the purpose of the Palau Street Design Guidelines: Primary Roads, Secondary Roads and Local Roads. Traditional roadway systems of classification consider the number of driveways, intersections and other access points, regional versus local service, speed and volume of traffic. For the preparation of this document, map data provided by the Palau Automated Land and Resource Information System (PALARIS) and the World Food Program OpenStreet Maps are used to determine that three classifications of roadways applied to Palau.

These classifications are further defined by street typologies based on land use of adjacent properties - whether they are residential, commercial, or mixed-use.

Functional Classifications Major Connector, Main Street Primary Roads in Palau serve local and visitor traffic, and cater to longer distance, motorized traffic with higher speed limits and a wider right-of-way. Primary Road classifications can be more specifically defined by Major Connectors that connect states and towns, serve local and visitor traffic, heavy truck and equipment transport and have fewer access points. Major Connectors can also become Main Streets where commercial, community and mixed-use adjacent landuses are accessed from the Major Connector, such as along the Primary Road in the State of Airai.

Minor Connector, Main Street Secondary Roads in Palau consist of Minor Connectors that lead hamlets to Major Connectors and commercial areas.

Minor Connectors serve both local and visitor traffic, and may carry heavy truck traffic with fewer access points (driveways) than a Neighborhood Connector. Secondary Roads become Main Streets where commercial, hospitality, and mixed-use functions are accessed along the through street. Main Streets serve through and local functions, and are typically found in hamlet centers. The appropriate design of the Main Street not only improves multi-modal safety and comfort, but enhances the resident and visitor experience with the goal to increase access to local businesses.

Neighborhood Connector Local Roads serve mostly hamlet traffic, connecting a primarily residential area to mixed-use destinations - people’s homes to workplaces, schools, community centers and smaller commercial areas. In Palau, Local Roads can be further defined as Neighborhood Connectors and Residential Roads. The Neighborhood Connector type usually occurs near, or connects to, a Main Street, and is characterized by having pedestrian activity, on-street parking which may be required by the state or desired, and numerous driveways serving private property. Residential Roads serve limited local traffic with very low volume. The adjacent residential properties tend to have dense vegetation along a narrow right-of way or private street.

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Key Concepts and Principles Multi-Modal

Multi-Modal Networks provide accessibility for cyclists, pedestrians and motorists alike regardless of age, income level, and ability. Direct, convenient, continuous access to destinations, alternative routes, safe separation or shared pathways make up multi-modal networks. In Palau, walking, cycling, micro-mobility devices, buses and shuttles share the right-of-way in a multi-modal network.

Tourism

Palau’s economy relies significantly on tourism, which in turn is dependent on its pristine marine and terrestrial ecosystems, and unique island culture. Street design can highlight the local identity by using Palauan language and art as appropriate in way-finding and place identification.

Vibrant commercial corridors and main streets enhance the tourist experience and encourage pedestrian foot traffic among local businesses.

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Designing for People

Designing with people in mind, there is an emphasis on the streetscape as it relates to the pedestrian and cyclist experience. This involves creating spaces that are attractive because they are safe, comfortable and enjoyable. By increasing the tree canopy to provide shade and connection with nature, visually and/or physically separating modes of transit, traffic calming elements, the design can enhance the user experience as they travel or exercise along the right-of-way.

Sustainability

In planning for resiliency, future development of Palau’s streets offers the opportunity to incorporate sustainable design principles around stormwater management as well as protect the existing ecological processes. The street space as design in this manual promote aquifer recharge as well encourage connection to local streams and estuaries using swales. Increased native vegetative plantings can aid in sediment and erosion control to preserve Palau’s pristine environment.

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Street Design Elements: Safe, Accessible, Comfortable Spaces The following is a description of elements that may be included in the guideline’s street section.

Bicycle Infrastructure Bicycle infrastructure, such as separated bicycle lanes, bicycle boulevards and shared traffic lanes, can support multi-modal transit as well as the opportunity to exercise and recreate for cyclists of varying experience levels and confidence. Effective bicycle infrastructure considers safety, comfort, and connectivity that is direct and convenient.

Designing comfortable and seamless cycling routes that reduce stress, anxiety and safety concerns can lead to more people bicycling. Bicycle infrastructure is designated using a combination of striping, paint, bicycle markings and signage in the typical street design.

Pedestrian Paths Sidewalks and pedestrian lanes can provide safe, comfortable pathways dedicated to pedestrians alongside the roadway. Sidewalks are physically separated from the roadway by a curb or unpaved buffer space such as landscaping.

Where the shoulder is being used as the pedestrian path, providing a segmented stand-alone curb between the bicycle lane or motorist traffic creates the needed separation within the right-of-way. In Palau, unique paving designs and painted street murals can be used to indicate the pedestrian path. For temporary or pilot projects, vertical delineators can be used to separate the pedestrian zone from the motorist traffic.

Stormwater Drainage Stormwater management is a high priority with an average of 147 inches of precipitation per year in Palau. It is recommended that all surfaces along the roadway be sloped towards a drainage path that ties into an existing network of stormwater-ways. A concrete swale, bioswale comprised of graded earth, native grasses and other planting or a concrete box trench with cover may be appropriate depending on the functional use of the surround. In Palau, the concrete swale is the typical path for guiding stormwater to an outlet or estuary; however, when the swale becomes too deep or steep it can become a safety hazard and obstacle for users. When the drainage is situated in a heavier multi-modal traffic area, concrete trench covers with minimal inlet openings can be designed and installed to minimize risks. In all development, stormwater management designs should be approved by the Palau Environmental Quality Protection Board.

Vegetation Vegetation serves both functional and aesthetic purposes along the roadway. These street designs encourage planting taller trees with large canopies for shade, grasses and shrubs for soil erosion prevention and reducing heat island effect, and plants and flowers to enhance the user experience whether one is traversing along the roadway. The street design should consider planting only vegetation that is native to Palau. Ensure that planting and landscaping do not obstruct pathways, sight lines, or stormwater flow, adequate space for root systems is provided, and an effective maintenance plan is in place.

Signage Street signage provides wayfinding, instruction and warnings to all users of the roadway. Wayfinding signs include path use designation and directions to destinations. One-way and entry/exit signs provide cues to users. Warning signs indicate the special characteristics of the street by, for example, signaling that pedestrians or cyclists may be present on roadway. Signage must be clear, visible, and by using the appropriate lettering, colors and graphics. Palau may consider developing signage that meets functional requirements while incorporating graphics and the Palauan language that reflects the unique island context and culture.

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Bicycle Lane

Traffic Lane

Traffic Lane

Bicycle Lane

Buffer

2-3’

Buffer

Swale

Swale

2’

4’

12’

12’

4’

2’

2-3’

Primary: Major Connector The Compact Road is the main Primary Road and Major Connector in Palau. It is a loop road that connects states and hamlets on the largest island of Babeldaob.

It is currently 53 miles of highways composed of two 12’-0” asphalt-paved lanes typically flanked by a 3’-0” shoulder and a variety of stormwater drainage systems.

The right-of-way ranges from a total of 30’-0” to 34’-0” wide. Speed limits on the Compact Road can be from 25 to 35 miles per hour; however, speeding is an issue due to the rural nature of the surrounds and the width of the road. This may change as adjacent land is developed and traffic increases. Due to the longer distance spans and higher speed limits, the Compact Road is most conducive motorized vehicles and distance cycling.

With an adequate buffer, cycling lanes can be paved on both right and left sides, always in the direction of traffic. Planting on the adjacent slopes creates shade and comfort, while preventing soil erosion.

Palau Street Design Manual

Bicycle Lane - bicycle lanes paved on both right and left sides of the road, use green paint and/or street markings as clear visual cues.

Swale - swales vary depending on the surrounds and can be vegetated bioswales or concrete.

Signage - provide wayfinding and bicycle lane designation signage that are easy to read from an approaching vehicle.

Additional Elements Native vegetation along the adjacent slopes should be selected to retain soil and prevent erosion. Refer to the Palau Erosion & Sediment Control Field Guide for information.

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2-3’

Bicycle Lane

Traffic Lane

Traffic Lane

Bicycle Lane

Buffer

Swale

Buffer

BUSSTOP Swale

2’

4’

12’

12’

4’

2’

2-3’

Bus Stop

9’

Sidewalk

4’

Primary: Main Street In Airai state, businesses, government and community buildings, and hotels are accessed along the right-of-way.

Here, where the Major Connector transitions to a Main Street, the roadway can accommodate on-street parking or tour bus/shuttle stops; speed limits are reduced to range between 15 and 20 mph to accommodate bends in the road, and provide safety and comfort for the increased pedestrian and cyclist volume.

Bicycle Lane - bicycle lanes continue from Major Connector through the Main Street.

Sidewalk - a sidewalk located on at least one side of the road.

Swale - a shallow, wide swale for ease of vehicular movement from the Main Street to driveways or local roads.

Signage - indicate parking and bus stops along with wayfinding and pedestrian/cyclist warning signs.

Additional Elements Street and sidewalk lighting should illuminate intersections and driveways. Bus shelters and large tree canopies along the street frontage provide shade and buffer from the elements.

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Sidewalk

2-3’ 2’ 4’

Bicycle Lane

5’

Traffic Lane

Traffic Lane

Bicycle Lane

11’

11’

5’

Sidewalk

Buffer

Buffer

Swale

Swale

4’ 2’ 2-3’

Secondary: Minor Connector Minor Connectors are Secondary roads that connect neighborhoods to major connectors, commercial areas, and hamlet centers. They serve mostly local traffic and have more access points such as driveways, along the right-of-way. The Minor Connector street from the Compact Road to the pier in the State of Melekeok is an example of a Minor Connector that can be include boulevard style planting to highlight the approach to the Republic of Palau’s capitol building.

Bicycle Lane - bicycle lanes paved on both right and left sides of the road, use green paint and/or street markings as clear visual cues.

Sidewalk - pedestrian pathways at the same level as the street, separated by a segmented curb that allows for stormwater to flow to the swale.

Swale - swales vary depending on the surrounds and can be vegetated bioswales or concrete.

Signage - provide wayfinding and bicycle lane designation signage that are easy to read from an approaching vehicle.

Additional Elements Boulevard style planting and street lighting can enhance the approach to the destination.

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4’-5’

Traffic Lane

2’

10’

10’

Bicycle Lane

Plantings

4’

Traffic Lane

Trench

4-6’

Bicycle Lane

Trench

6-8’

Sidewalk

Plantings

Outdoor Seating

2’

4’-5’

4’

Sidewalk

4-6’

Secondary Main Street The motorized traffic lanes can be reduced to 11’-0” with the addition of 5’-0” bicycle lanes, a segmented curb, a pedestrian lane and swale as part of the right-of-way.

The right-of-way of the Secondary Road Main Street can consist of two motorized traffic lanes and a 2’-0” to 3’-0” swale or covered stormwater trench with a 3’-0” shoulder. Motorized traffic lanes can be reduced to 10’0” wide to slow traffic and increase safety for cyclists and pedestrians. With the high volume of multi-modal transit on the Main Street, traffic calming, parking design, and street signage (for example: one-way traffic at parking entry and exits) are critical considerations.

Bicycle Lane - separated from vehicles by a shallow or covered trench and can be indicated by green paint and bicycle marking.

Sidewalk - a raised sidewalk separated from cyclists using planting and shade trees with ease of movement between the street and storefront.

Trench - a narrow trench for stormwater management may require a cover in areas where the trench becomes an obstacle for vehicles, cyclists, and/or pedestrians.

Signage - indicate bicycle lane and pedestrian crossing areas.

Additional Elements Adequate street lighting, traffic calmers, and crosswalks ensure the safety of pedestrians and cyclists. Street furniture, storefront canopies, place-making signage and historic information boards highlight the local identity and enhance the visitor experience.

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Shared Traffic Lane

Parallel Parking

Plantings

Sidewalk

10’

8’

4’

4-6’

Secondary: Main Street Parking In some jurisdictions, businesses and hotels are required to provide parking for their customers or guests. In addition to underground or surface off-street parking lots, parallel parking can be designed to address these parking requirements. Reducing dangerous 90-degree parking and wide driveways along the roadway will improve multi-modal transit conditions and ease parking entry and exit for vehicles.

Shared Traffic Lane - motorized vehicles and cyclists can share a traffic lane to create space for parallel parking.

Sidewalk - a raised sidewalk separated from cyclists using planting and shade trees with ease of movement between the street and storefront.

Trench - a shallower stormwater swale or covered trench can be located within the parallel parking spot for ease of vehicular movement.

Signage - provide signage and street markings indicating shared traffic lane and designated parking areas.

Additional Elements Adequate street lighting, traffic calmers, and crosswalks ensure the safety of pedestrians and cyclists. Street furniture, storefront canopies, place-making signage and historic information boards can highlight the local identity and enhance the visitor experience.

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4’

4’-5’

2’

10’

Turning Lane

10’

Traffic Lane

10’

Bicycle Lane

Plantings

4-6’

Traffic Lane

Trench

6-8’

Bicycle Lane

Trench

Sidewalk

Plantings

Outdoor Seating

2’

4’-5’

4’

Sidewalk

4-6’

Secondary: Main Street Koror In downtown Koror, there is a total of three vehicular traffic lanes with the addition of the center turn lane.

A recommendation from the 2014 Complete Streets in Palau report was for the lane widths to be reduced to 10’-0” wide with 3’-0” shoulders to improve comfort of pedestrians on narrow sidewalks. Taking this concept to the next level, the street sections in this design manual suggest creating commercial frontage beyond the rightof-way that includes bicycle lanes, a vegetative buffer, a wide sidewalk and an optional furnishing area dependent on the function of the frontage. Street designs should allow for smooth transitions from the street to the storefront entry point.

Bicycle Lane - can be indicated by green paint and bicycle marking, separated from vehicles by a shallow or covered trench Sidewalk - a raised sidewalk separated from cyclists using planting and shade trees with easy movement between the street and storefront.

Trench - a narrower trench for stormwater management may require a cover in areas where the trench becomes an obstacle for vehicles, cyclists, and/or pedestrians.

Signage - indicates bicycle lane, pedestrian crossing areas. wayfinding signage provide directions to attractions, tourist information and hotels.

Additional Elements Adequate street lighting, traffic calmers, and crosswalks ensure the safety of pedestrians and cyclists. Street furniture, storefront canopies, place-making signage and historic information boards can highlight the local identity and enhance the visitor experience.

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Swale Sidewalk

2’

4’

Shared Traffic Lane

Shared Traffic Lane

10’

10’

Sidewalk Swale

4’

2’

Local: Neighborhood Connector In these design guidelines, the design of a Local Road focuses on the Neighborhood Connector type. Design of the Neighborhood Connector should consider higher volume of youth and elderly pedestrians, and residents using the roadway for exercise; therefore, traffic lanes can be narrowed to 10’-0” wide and traffic calming measures should be considered. With reduced speed limits ranging from 15 – 20 mph and the addition of adequate signage and visual cues, lanes can be shared between motorists and cyclists. A segmented curb separating the pedestrian lane from the traffic and a concrete swale can be accommodated within the rightof-way, while planting for shade and soil retention on residential frontage is encouraged. In these sections, the width of the right-of way is 32’-0” although existing widths vary from 24’-0” to 32’-0”.

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Shared Traffic Lane - motorized vehicles and cyclists can share a traffic lane.

Sidewalk - pedestrian pathways at the same level as the street, separated by a segmented curb that allows for stormwater to flow to swale Swale - a shallow swale for ease of vehicular movement from the street to driveways Signage - provide signage and street markings indicating shared traffic lane and cautioning that pedestrians are on the roadway.

Additional Elements Adequate street lighting, traffic calmers, and crosswalks ensure the safety of pedestrians and cyclists. Ensure that private property is maintained along the roadside and site-lines at driveways and intersections are clear.

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Acknowledgments The development of this document was made possible through funding by Palau Visitors Authority.

This document builds upon previous contributions to the discussion of walkability and Complete Streets in Palau by: Fenton, Mark, U.S. public health, planning, and transportation consultant Kitalong, Ann, Advisor on planting, The Belau National Museum Matsutaro, Erbai Xavier, Urban Planner and Climate Change Moule, Michael, PE, County of Kauai Chief Engineer Ngiraingas, Madelsar, JM Services Otto, Judy, Palau Walks, CDC’s Tephinet Liaison Palau Ministry of Health Tmetchul, Ngirai, Chairman of the Palau Visitor’s Authority ...and numerous others who have participated in walk audits, community outreach and discussions.

Data Resources Moule, Michael, PE. Complete Streets in Palau: Report on a Week-long Focus on Complete Streets. 2014 Cash, Dr. Haley. Availability of Street-Level Supports for Walking in the Republic of Palau. 2019 The National Oceanic and Atmospheric Administration.

Comparative Data. 2017.

2017 Local Climatological Data Annual Report with

Palau Ministry of Health, Palau Physical Activity Working Group, Centers for Disease Control & Prevention (CDC), Task Force for Global Health (TEPHINET). Palau Walkability Institute. Combating NCDs One Step at a Time. 2018 Palaris Map of Palau roads. 2016.

World Food Program. Palau Streets and Pathways OpenStreet Map data. Last updated in 2020.

References U.S. Department of Transportaion Federal Highway Administration. Small Town and Rural Multi-modal Networks.

2016.

County of Kauai, Hawaii. Street Design Manual. 2018 Republic of Palau. Koror-Babeldaob Island Urban Development Strategy and Action Plan Draft Interim Report. 2020 The Republic of Palau Environmental Quality Protection Board. Horsley Witten Group, Inc. Palau Erosion & Sediment Control Field Guide, Version 1.0 for Contractors and Site Inspectors. 2010

Past & Current Projects Asahi Road Complete Streets Project. Dr. Akiko Lida.

Airai Commercial Village Walkability Project. Palau Walks, TEPHINET, & Mika Yamaguchi Architects.

Meketii Hamlet Complete Streets Proposal. JM Services, Palau Walks, & Mika Yamaguchi Architects.

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