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Identifying transportation needs and gaps

Transportation System Plan Update: Gaps Analysis

As part of the Transportation System Plan (TSP) update, the city conducted a gaps analysis to identify areas where our transportation network is falling short of our community’s needs. This analysis was guided by new performance standards, including Pedestrian and Bicycle Level of Traffic Stress (see definitions below), and focused on access to the following key destinations in Milwaukie: schools, parks, grocery stores, Neighborhood Hubs, and the the Town Center.


BLTS and PLTS defined:

  • Bicycle Level of Traffic Stress (BLTS): A measure of how comfortable and safe a roadway is for cyclists, based on factors like traffic volume, speed, and infrastructure design.
  • Pedestrian Level of Traffic Stress (PLTS): A measure of how safe and comfortable a roadway is for pedestrians, considering factors such as traffic speed, volume, and the presence of sidewalks or crosswalks.


Using this framework, we identified areas within a 1/4-mile walking and bicycling distance of these destinations and identified transportation facilities where the existing conditions do not meet the City’s standards for low-stress walking and cycling (Stress Targets: BLTS Level 1 and PLTS Level 2).


City of Milwaukie recommended BLTS and PLTS targets.   

  • BLTS 1 – Represents little traffic stress and requires less attention, so is suitable for all cyclists. This includes children that are trained to safely cross intersections (around 10 yrs. old/5th grade) alone and supervising riding parents of younger children. Generally, the age of 10 is the earliest age that children can adequately understand traffic and make safe decisions which is also the reason that many youth bike safety programs target this age level. Traffic speeds are low and there is no more than one lane in each direction. Intersections are easily crossed by children and adults. Typical locations include residential local streets and separated bike paths/cycle tracks.
  • PLTS 2 - Represents little traffic stress but requires more attention to the traffic situation than of which young children may be capable. This would be suitable for children over 10, teens and adults. All users should be able to use the facility but some factors may limit people using a wheelchair or mobility device. Pavement condition should be good with limited areas of fair condition. Roadways may have higher speeds and/or higher volumes. Most users are willing to use this facility.


Note: The targets were recommended by the city's consultant and the TSP Advisory Committee for adoption through this TSP update. While the city will always strive to achieve PLTS 1 on pedestrian facilities (especially in sensitive areas like near schools where there are more likely to be vulnerable roadway users) the PLTS 2 target acknowledges that achieving PLTS 1 in an urbanized environment is a serious challenge. Limitations, such as available right-of-way, funding, and the presence of other right-of-way users (such as utilities), make achieving PLTS 1 prohibitively expensive in many instances.


To better understand the most critical needs, we layered these walk and bike sheds to highlight locations where multiple key destinations—like a school and a park—are nearby, but transportation facilities do not meet BLTS 1 or PLTS 2. Figure 13B shows the outcome of this analysis for the city’s pedestrian facilities and Figure 16B shows the analysis for the city’s cycling facilities.

Figure 13B: Pedestrian gaps and deficiencies near key destinations
(key destinations = priority focus areas)

Figure 16B: Bicycle gaps and deficiencies near key destinations 
(key destinations = priority focus areas)


The findings from this analysis will help the city prioritize future transportation projects and investments, ensuring we improve access and safety for all users while advancing equity, sustainability, and mobility goals.

While the primary focus of this analysis was on pedestrian and bicycle facilities, consistent with the previously identified TSP goals and policies and the new state Climate-Friendly and Equitable Communities (CFEC) rules, we also evaluated key intersections for automobile flow and delay and analyzed the movement of freight throughout Milwaukie. You’ll be able to read the full existing conditions/needs gaps memorandum within the coming weeks.

We encourage you to share feedback on this analysis and ask questions. You can also view the whole set of walk/bike-shed maps here.