Real safety improvements happen when communities and agencies work together. Following the deaths of cyclists Jacob Hill and Leonard Antonelli on NC Scenic Byway 251, AoB has been collaborating with NCDOT Division 13 to identify short-term safety measures that can be implemented now, not years from now.
Our letter below outlines specific recommendations: reduced speed limits, traffic calming at 11 key intersections, better signage, and policy changes that would give NCDOT more tools to protect vulnerable road users statewide. Read Mike’s full letter to NCDOT below.
I am following up regarding our September 30 meeting to discuss safety spot improvements on NC Scenic Byway 251, aimed at enhancing the safety and functionality of the corridor for all road users by implementing existing safety measures currently at the disposal of NCDOT. On behalf of Asheville on Bikes (AoB), I thank you for your commitment to improvements following the tragic collision on July 1, 2025, which resulted in the deaths of Jacob Hill and Leonard Antonelli.
I agree that this corridor continues to present significant safety challenges due to its mix of commercial and commuter vehicular traffic, bicycle use, and the topographical and physical constraints of the route. I recognize that there is no simple solution to maximize both safety and utility, and I deeply appreciate your department’s focus on safety improvements. I also thank you for including me and Abby Walker—AoB’s Executive Assistant, Pisgah Rage Head Coach, BB Barnes Race Team Member, and co-founder of Dirt Skirrts—in the discussion of potential improvements.
While the focus of our meeting was NC 251 between Asheville and Marshall, I must also note that current North Carolina Department of Transportation (NCDOT) policies sometimes limit the safety of our most vulnerable road users. I urge you and your office to advocate for broader policy changes within the agency and the legislature. Safety is a shared responsibility, and this moment offers an opportunity to influence policies that enhance safety statewide.
For example, the Strategic Transportation Investments (STI) Law (GS 136.89.11), passed in 2013, prohibits NCDOT from funding and constructing stand-alone bicycle and pedestrian facilities. This restriction also prevents NCDOT funds from being used as federal matches to expand infrastructure for vulnerable road users. While NCDOT officials cannot lobby for legislative changes, you can speak to the impacts of current law, which constrain the department’s ability to improve safety along this and similar corridors.
Additionally, NCDOT’s Multimodal Guidance, published by the Safety and Mobility Division, does not include the Bicycles May Use Full Lane (BMUFL, R4-11 or R9-20) sign. This sign is included in the Manual on Uniform Traffic Control Devices (MUTCD, 11th Edition), adopted by FHWA in 2023 and required for state adoption by January 2026. (It also appeared in the 10th Edition, adopted in 2009.) NCDOT’s 2024 Multimodal Guidance references the 11th Edition MUTCD but does not include BMUFL signage.
While municipalities like Asheville have deployed BMUFL signs, NCDOT has not. This sign clearly communicates that people on bikes have the right to use the full lane. We encourage NCDOT to include this sign in its manual and deploy it along NC 251 between Asheville and Marshall. Doing so would demonstrate Division 13’s leadership and commitment to improving safety for all users.
These two policy changes—STI law reform and BMUFL sign adoption—would significantly enhance the safety of public roads across North Carolina.
Short-Term Recommendations for NC Scenic Byway 251
Align improvements with Woodfin’s Walk Bike Woodfin Comprehensive Bicycle & Pedestrian Plan (2025), the Hellbender Regional Trail :
These plans outline a comprehensive active transportation network and reflect increasing recreational use along the NC 251 corridor. The Riverside Park Expansion, Silver Line Park, Taylor’s Wave, Beaverdam Greenway, and NC 251 Greenway all indicate rising demand for safe multimodal access. NCDOT improvements should complement this emerging network and use.
Reduce the speed limit a range between 30mph – 25mph from Asheville to Marshall:
The 11th Edition of MUTCD explicitly states that the 85th percentile speed should not be the sole basis for setting speed limits when pedestrian and bicycle safety is a factor. Woodfin’s plan notes that NCDOT’s Corridor Section Safety Score along Riverside Road “has a relatively higher safety score, indicating that safety may be an issue” (Bike Walk Woodfin, p. 51). We encourage NCDOT to use other FHWA-adopted methods, such as USLIMITS2, to evaluate potential speed limit changes.
Collect pre- and post-treatment data:
Measure the impact of short-term safety treatments on vehicle speeds, paying special attention to outliers that may indicate a need for further traffic calming. Conduct pre- and post-speed audits of the corridor.
Implement traffic calming at intersections:
Use hardened centerlines —devices that extend the centerline beyond the stop bar—to slow turning vehicles. These can be low-cost and mountable for larger vehicles. Incorporate crosswalks where sidewalks exist and consider raised intersections.
The raised intersection at 301 Linville Ave in Linville, NC, has proven effective since the mid-2000s and functions well despite regular snowfall. Given that the Woodfin area receives less annual snowfall than Linville, raised intersections are a feasible option here as well.
Priority intersections for traffic calming:
- Elk Mountain Rd / NC 251
- Bannister Dr / Hogan View Dr / NC 251
- Old Marshall Highway / Canoe Ln / NC 251
- Louise Rdg Dr /NC 251
- Wiley Dr / NC 251
- Monticello Rd / NC 251
- Fletcher Martin Rd / NC 251
- Lower Flat Crk Road / NC 251
- Panther Branch Rd / NC 251
- Panhandle Rd / NC 251
- Ivy Hill Rd / NC 251 / US 25
Intersection signage and sharrow treatments:
Install signage at all intersections to alert motorists that they are entering a heavily used bicycle corridor, and apply sharrow surface markings to reinforce this message.
Consult best practices for rumble strips:
Reference the FHWA Rumble Strip Implementation Guide: Addressing Bicycle Issues on Two-Lane Roads and Adventure Cycling’s Solutions for Making Rumble Strips Safer for Cyclists.
Coordinate with local stakeholders:
Collaborate with the cities of Asheville and Woodfin, the Town of Marshall, the Downtown Asheville Racing Club (DARC), the Blue Ridge Bicycle Club, and Asheville on Bikes to account for events, weekly rides, and anticipated increases in bicycle traffic.
Public awareness campaign:
Communicate that:
- People on bikes have the right to ride.
- Motorists should respond safely and respectfully to cyclists.
- Citizens can report harassment or unsafe driving behavior to authorities.
On behalf of Asheville on Bikes, we believe these immediate interventions will meaningfully enhance the safety and functionality of NC Scenic Byway 251. Thank you for the opportunity to work together toward safer streets.
We also encourage NCDOT Division 13 to pursue additional safety improvements by combining such efforts with other projects—such as corridor modernization or resurfacing—that allow for safer designs without constituting “stand-alone” bicycle or pedestrian projects. Other divisions have successfully used this approach to prioritize safety, and Division 13 should do the same.
Finally, we urge Division 13 to use discretionary spot treatment funds to address the longstanding safety issues along this corridor. Our region continues to lead the state in pedestrian and cyclist injuries and deaths, making it imperative that Division 13 adopt new, creative approaches to elevate safety across our public rights-of-way. This safety crisis requires innovative, proactive problem-solving from NCDOT and its divisions.
Sincerely,
Mike Sule
Executive Director
Asheville on Bikes