Complete Streets: How Policy and Design Shape Urban Mobility

Communities thrive with greater connectivity. When this includes a multimodal approach that’s designed to accommodate users of all ages and abilities, it can be referred to as complete streets. The concept redefines the design of roadways to support a more holistic view of mobility, shifting from vehicle dominated corridors to spaces that serve everyone.

Complete streets are uniquely positioned to meet multiple goals at once. Increased public accessibility unlocks opportunities for economic growth, enhanced infrastructure, and improved public health. It not only promotes sustainability with active transportation and green infrastructure but also improvements for motorists with safety and traffic calming features.

Graphic introducing the topic of complete streets.

Comprehensive in nature, a complete streets policy can also be complex in its implementation. Each community has its own needs, constraints, and priorities, meaning complete streets must be thoughtfully tailored to their context.

In this blog, we’ll explore what complete streets are, the common elements that make them effective, and the process of creating policies leading to projects that bring them to life.

What Are Complete Streets?

Complete streets are an approach to planning, designing, building, operating, and maintaining streets that enable safe access for people of all ages and abilities. Rather than focusing primarily on vehicular traffic, this approach considers how all users interact within the transportation network to increase efficiency throughout.

At its core, complete streets emphasize multimodal transportation. This means integrating infrastructure for pedestrians, cyclists, transit users, and motorists while also adding improvements to infrastructure like stormwater management. The goal is to create streets that are not only functional but also inviting and efficient, improving both mobility and overall environment within a corridor.

Examples of Complete Streets Design Features

Complete streets incorporate a variety of design features that work together to improve access to businesses, essential services, and public spaces. This often leads to comprehensive improvements along a corridor impacting multiple aspects of public infrastructure.

Tualatin Moving Forward Transportation Bond

Aerial view of an intersection along the Boones Ferry Corridor.

Boones Ferry Corridor Improvements

A two-mile corridor is improved with practical, cost-effective solutions that enhance bike and pedestrian access.

Image of the completed redesign of the Martinazzi Avenue intersection as part of the Tualatin Moving Forward Bond Program.

Martinazzi & Sagert Intersection

Increased traffic capacity is combined with protected bike lanes and widened sidewalks as part of improved overall operations.

View of a pedestrian crosswalk and landscape as part of pedestrian safety improvements around Tualatin Elementary.

Tualatin School Pedestrian Improvements

Removal of barriers to students biking and walking to Tualatin Elementary also reduces roadway congestion in the area to improve safe routes to school.

The Sandalwood Swale from the adjacent sidewalk with signage describing the water quality facility.

Sandalwood Swale

To account for added impervious surfaces across the Tualatin Moving Forward Bond Program, a vegetated swale is designed to treat stormwater in the area with green infrastructure.

Roadways

Roadways can often be barriers to broader accessibility. While complete streets place less priority on a community’s vehicular traffic, improving roadways for their use is no less important. Taking a wider perspective, the design often seeks to reduce overreliance on cars, improving safety and traffic for everyone in the area.

Features such as wider shoulders, curb extensions, and roundabouts are commonly used to calm traffic and reduce speeds. These elements enhance safety for both drivers and pedestrians while maintaining efficient road diets. The result is a roadway that’s safer and more integrated with other modes of transportation, removing barriers for all.

Sidewalks, Bike Lanes, and Multiuse Paths

Active transportation infrastructure is a defining feature of complete streets. Sidewalks, bike lanes, and multiuse paths are designed to create safe and convenient options for people who walk, bike, or use growing forms of micromobility.

Municipal policies often guide these features, such as requiring sidewalks of a certain width along new developments. Increasingly, designers must also account for emerging transportation modes like e-bikes and e-scooters, as well as designated spaces for rideshare services that do not disrupt traffic flow. These improvements benefit local businesses by increasing accessibility and walkability. When people can reach shops and services without a car, it expands the customer base and enhances the overall experience of an area.

Accessibility is essential to this goal. Features like pedestrian bridges, median islands, and well-marked crosswalks with updated signals help ensure that streets are safe and usable for individuals of all abilities.

Transit Stops and Bus Lanes

Public transit plays a vital role in complete streets. Integrating transit options such as bus rapid transit or light rail helps reduce congestion and provides reliable alternatives to driving.

Dedicated bus lanes can improve efficiency by allowing transit vehicles to bypass traffic, making service faster and more predictable. Equally important are the transit stops themselves. Comfortable, accessible, and well-designed waiting areas can significantly improve user experience and encourage more people to use mass transit. Providing adequate space for waiting passengers, along with amenities like seating and shelter, contributes to a more welcoming and functional system.

Stormwater Infrastructure

While it may not be the first thing that comes to mind with transportation, stormwater infrastructure can be one of the most important features. As with any roadway, complete streets must effectively manage water runoff, especially as these new developments can increase impervious surfaces, or change existing conditions.

These requirements can lead to opportunities to integrate green stormwater infrastructure solutions. A nature-based design approach may use features such as vegetated swales and rain gardens to not only manage water efficiently and with low impact, but also to enhance the environment of a corridor.

Parks and Green Space

Complete streets often connect to parks, trails, and other recreational areas, expanding their reach and usefulness. By linking neighborhoods to regional trail systems, these projects can improve mobility across larger areas.

Green spaces add recreational value while also supporting environmental functions like stormwater management. Amenities such as bike racks, benches, and open spaces create new opportunities for alternative transportation and outdoor community activity.

Creating a Complete Streets Policy

Implementation of a complete streets design begins with a complete streets policy. This process, which can often take shape through comprehensive planning, establishes a framework for how streets will be planned and designed, ensuring consistency and alignment with community goals.

Because every community is different, policies must be flexible and context-sensitive, reflecting local priorities and conditions. There are several essential elements to that effort.

Build a Team of Stakeholders

A successful complete streets initiative begins with assembling a diverse group of stakeholders. This often includes neighborhood organizations, government agencies, elected officials, public safety advocates, business groups, and design professionals.

Property owners are especially important to be involved, as they may be directly impacted by changes. Early collaboration helps identify concerns, build consensus, and create a shared vision for the project.

Align Regulation and Requirements

Regulations can play a significant role in shaping complete streets policies. Municipalities might require a minimum sidewalk width around redevelopment or have a Vision Zero policy directed at eliminating transportation related injury and deaths.

These requirements can not only guide design decisions but also be used to advance complete streets initiatives that enhance safety. Shifting responsibility toward system designers, such as engineers and policymakers, the focus moves to safe speeds, forgiving infrastructure, and equitable, data-driven actions, rather than relying solely on individual behavior.

Identify Deficiencies and Opportunities

From an engineering perspective, the design process begins with evaluating existing conditions. Identifying gaps, from missing sidewalks and inadequate transit stops to a lack of bike infrastructure, helps define priorities and opportunities for improvement.

Designers must also account for constraints like existing utilities, walls, and right-of-way limitations. Traffic data and modeling can inform decisions about lane configurations, including opportunities for road diets or additional capacity where needed.

Community Engagement

Engaging the community is essential to creating successful complete streets. Public input helps identify desired features, anticipate how spaces will be used, and build support for the project.

Engagement can range from working with key stakeholders to broader public outreach efforts. Ultimately, incorporating community feedback ensures that the final design reflects the needs and values of the people it serves.

A Multidisciplinary Approach to Complete Streets and Vibrant Communities

Complete streets represent a shift toward safer, more connected, and sustainable transportation systems. They’re designed to safely accommodate pedestrians, cyclists, transit users, and motorists by integrating multimodal infrastructure, accessibility features, green spaces, and stormwater management. With thoughtful policies formed through a diverse set of stakeholders, these solutions are tailored to each meet the local needs of a community.

The approach ultimately helps foster neighborhoods where people of all abilities benefit from more vibrant, functional, and inviting environments for generations into the future.

Stories of the Salem-Keizer School District Bond Program

Turning a Successful Bond into Expansive Improvements for Oregon’s Second Largest District
The Stories of Salem-Keizer School District

The Project: At a Glance

Graphic displaying the stat of 7 years from the Salem-Keizer School District bond program.
Graphic displaying the figure of 72 sites where work took place during the Salem-Keizer bond program.
Graphic displaying the $786 million figure that went into the Salem-Keizer school bond program.

Navigating an Unpredictable, Unprecedented Timeline

From a global pandemic with labor shortages and supply chain issues to natural disasters, the Salem-Keizer bond program overcame a variety of challenges. A strong program management system put in place by the team ensured projects–that spanned every building in the district–remained on track, doing everything that was promised in the bond and then some.

In all, improvements from the bond would touch every building in the district.

Infographic showing a timeline of events from the Salem-Keizer School District Bond Program.
Headshot of Joel Smallwood.

Joel Smallwood, Director of Facilities – Salem Keizer School District

“We learned a lot from each other… and that combination of knowledge under a one-team mindset is how we reached this final outcome.”

Building a Broad Team with Focused Goals

At its height, the Salem-Keizer School District (SKSD) bond program involved more than 30 project management staff across sites. To maintain cohesive goals and consistent progress, a fully integrated team was essential to its success.

On one side was the district staff, led by Joel Smallwood, with a deep connection to both the schools and their surrounding communities. Their perspective brought extensive knowledge of established district procedures and local needs. And on the other side, Otak’s 22 staff at their peak, under the guidance of Bob Collins, provided an in-depth understanding of school bond project delivery.

With leadership working together under the same roof, an environment was created that was dedicated to an overarching goal: successfully and efficiently fulfilling bond promises to the community.

Picture of the Salem-Keizer School District bond program team.
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View inside the Rose Theater added new as part of the Salem-Keizer School District bond program.
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A Total Transformation with Community Buy In

Among the largest projects in the SKSD bond program was a complete transformation of South Salem High School.

In addition to the enhanced systems implemented across all schools, South Salem High also featured comprehensive seismic upgrades as well as a rebuilt Rose Theater. With a 900-seat capacity, that facility also gained community buy-in by implementing plans to honor the historic building it replaced.

Leslie Middle School, which long served its community, would become the site for the new Rose Theater. Extensive community outreach led to a plan that cleared the way for the district’s future while remembering its past. Materials recovered from the original structure were used both in the construction of the new theater as well as in creation of a permanent display that memorialized its place in the community.

Setting a High Standard for Career Development across High Schools

Set in a landscape of rolling hillsides, the West Salem High School property was separated by changes in its elevation. This included a disconnect between the classroom used for a first responder career technical education (CTE) program on the lower property and the fire training tower on the upper property. The bond program connected these areas as well as adding a new 3-story wing, adding to an overarching increase in campus accessibility.

This is just one of many improvements to SKSD where a focus was placed on facilities for CTE programs. These programs prepare students to enter the workforce in a variety of areas, and in this case they’d not only have a choice in which path to choose but which choices were available.

Based on student input on career interests and what was previously present, the SKSD bond program created brand new or massively upgraded these facilities across each high school. No two schools would be the same, with programs ranging from automotive mechanics, woodworking, and fire rescue to culinary arts, sports medicine, and broadcast journalism.


Stefanie Stonebrink, Manager, Construction Services – Salem Keizer School District

As an employee and community member, it was important to me that the bond commitments remain valuable for years to come.

Archeological team members digging for tribal artifacts during the Salem-Keizer School District bond program.
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An Unexpected Assignment in Historic Preservation

With expertise of the land that extends long before the beginning of development, Tribal consultation is an essential piece to completing many projects today. This process also helps protect the history of Native Americans when unexpected items are uncovered, as was the case during the SKSD bond program.

At several sites, during work on the SKSD bond program, it was discovered that there could be Native American artifacts present. The team established strong collaboration with regional tribes to make sure their interests were honored and respected.

For more than a year, a team of archeologists were routinely on site to observe and document what was found.

Creative Approaches to Sustainable Design

As all new public buildings are, projects in the SKSD bond program needed to meet a 1.5% green energy requirement. Often the simplest way to satisfy this is adding solar capabilities on the roof, however this can create the potential for future leaks. To avoid this, the team had another idea.

Among the district’s plans were new covered play structures. So, solar panels were installed atop those to supplement renewable energy while leaving the school’s roof fully uncompromised. This approach was just one piece to the sustainability puzzle. At the Yoshikai site, a large ground installation of solar panels would provide 100% of electrical capacity for the facility.

Sustainability features–from solar to efficiencies in HVAC, appliances, and lighting–were together more than just an investment in the future but also resulted in present funding. Through a variety of energy efficiency rebates and Trust of Oregon incentives, the team was able to secure approximately $5.7 of additional dollars to support the district’s goals.

Aerial view of a solar field implemented during the Salem-Keizer School District bond program.
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Headshot of Bob Collins

Bob Collins, Owner’s Representative – Otak

“It’s unusual in this industry to be there from the very first day to one of the very last… the transparency between our teams allowed that to happen.”

Setting the Table for Elementary School Enhancements

With more than 40 elementary schools across the school district, several still did not have full cafeterias. The bond program would change that.

In addition to adding cafeterias across the elementary schools, the SKSD bond program also removed many portable classrooms, replacing them with permanent spaces inside the building, giving kids direct access.

Among the elementary school improvements were also those made to student drop off and pick up lanes. The design aimed to reduce congestion, enhance access, and add additional parking.

Expanded Scope through Efficient Management

The SKSD bond program, like most of its kind, began with a long list of hopeful improvements. Also like most, once the bond amount was approved, that list was narrowed to create a scope that would fit within that budget. But sometimes a bond team can find ways to expand that work, without extra cost to the public.

Through grants, reimbursements, interest, and other avenues, the SKSD program scope was able to grow. This allowed the district to go back to their original list of hopeful improvements and make more priorities a reality.

The expanded scope included improvements to roofs, building exterior seal, HVAC upgrades, security vestibules, and fire alarm systems among others. Even with all these features considered, perhaps where the team is most proud its efficiency made an impact was the fact that this work was completed to allow kids back in school, on time.

View inside the Library at McKay High School.
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Graphic thanking project partners for the Salem-Keizer School District bond program.
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In Partnership

Thank you to our Salem‑Keizer partners for the opportunity to help deliver projects that serve students, families, and our communities.