Norfolk Traffic: New Bike Lanes on Llewellyn

Norfolk’s bicycle lanes on Llewellyn Avenue were installed as part of the city’s original Pilot Bike Loop, which reallocated roadway space to create a more connected route for cyclists. The project also reduced the number of general-purpose vehicle lanes, leading some motorists to question its effect on congestion, turning movements and travel time.

The lanes are no longer new. They were developed from Norfolk’s 2015 Bicycle and Pedestrian Strategic Plan and have now become part of a much broader citywide bicycle and multimodal network.

The more useful questions today are:

• What exactly changed on Llewellyn Avenue?
• Why do cities reduce vehicle lanes to create bicycle space?
• What do Norfolk’s current bicycle-crash figures show?
• What duties do motorists and cyclists have near bike lanes?
• How does the road design affect an injury investigation?

What Changed on Llewellyn Avenue?

Norfolk’s Pilot Bike Loop implemented part of the city’s Bicycle and Pedestrian Strategic Plan through several connected bicycle-facility designs.

The approximately four-mile loop included portions of:

• Llewellyn Avenue;
• 35th Street;
• West Olney Road;
• Colley Avenue;
• 26th Street; and
• 27th Street.

The official Llewellyn Avenue project segment extended from Olney Road to 35th Street.

On Llewellyn, Norfolk:

• Reduced the number of general-purpose vehicle lanes;
• Created marked bicycle lanes to the right of the vehicle travel lanes;
• Maintained curbside parking; and
• Directed motorists to keep left of the bike lane.

This type of lane reallocation is commonly called a road diet.

Review the City of Norfolk Strategic Bike and Pedestrian Plan and Pilot Bike Loop information.

Was the Roadway Simply Reduced From Four Lanes to Two?

Two general-purpose automobile lanes were removed, but the roadway space did not disappear. It was reassigned to bicycle facilities while curbside parking was retained.

A neutral description is therefore:

Norfolk reduced general-purpose vehicle capacity on Llewellyn Avenue and reallocated part of the roadway for designated bicycle travel.

That description recognizes both effects:

• Motorists lost travel lanes; and
• Cyclists gained designated operating space.

Whether the trade-off was appropriate should be evaluated through traffic, speed, usage and crash information rather than by assuming that every lane reduction is either successful or harmful.

Why Do Cities Use Road Diets?

Four-lane undivided roads can create conflicts when vehicles in the inner lanes stop or slow for turns while other drivers change lanes to continue through.

Depending on the design, a road diet may be intended to:

• Reduce lane-changing conflicts;
• Lower vehicle speeds;
• Create bicycle or pedestrian space;
• Improve crossing visibility;
• Make turning movements more predictable;
• Provide pedestrian refuge areas; or
• Maintain access while reallocating excess roadway capacity.

The Federal Highway Administration reports that studied road diets on suitable four-lane undivided roads have produced overall crash reductions ranging from 19% to 47%.

Those national results do not prove that the Llewellyn project experienced the same outcome. The effect of a particular project depends on its design, traffic volume, intersections, driveways, parking, enforcement and use.

Review the Federal Highway Administration road-diet guidance.

What Did Norfolk Initially Report?

Norfolk’s project page reported two early observations after the Llewellyn lanes were installed:

• More cyclists appeared to be using Llewellyn Avenue; and
• Drivers appeared to be slowing and travelling at the speed limit.

The city page does not identify a formal study period, control location or detailed measurement method for those early observations.

They should therefore be understood as preliminary city-reported results—not conclusive proof that the lanes reduced crashes or eliminated traffic problems.

What Does Norfolk’s Current Bicycle-Crash Data Show?

Norfolk’s current public dashboard reports 162 bicycle-involved crashes on city-controlled streets from 2020 through 2024.

Location category	Reported bicycle crashes
Existing bicycle network	24
Outside the existing bicycle network	138
At intersections	104, or 65% of all reported bicycle crashes

Norfolk separately reports 18 bicycle-involved crashes along Strategic Corridor 2 during that period.

Corridor 2 includes:

• Llewellyn Avenue;
• Lower Granby Street; and
• Boush Street alternatives.

The 18-crash figure should not be described as 18 crashes occurring specifically within the installed Llewellyn bike lanes.

Raw crash totals also do not establish which setting has the lower crash rate. A meaningful rate comparison would require bicycle-volume, distance, network-mile and intersection-exposure information.

Review Norfolk’s Vision Zero crash and bicycle-network data.

How Has Norfolk’s Bicycle Program Changed?

The Pilot Bike Loop is now only one part of Norfolk’s active-transportation system.

The city currently reports nearly 60 miles of bike-friendly paths and roadways and maintains:

• A citywide bicycle-facilities map;
• Bicycle and pedestrian counters;
• A Multimodal Transportation Master Plan;
• A Vision Zero program;
• Shared-use paths;
• Buffered and unbuffered bicycle lanes;
• Shared-lane markings;
• The Elizabeth River Trail; and
• Bicycle and scooter parking facilities.

The 2022 Multimodal Transportation Master Plan builds on the 2015 strategic bicycle plan and evaluates how walking, cycling, scooters, transit and automobiles function together.

Review Norfolk’s Multimodal Transportation Master Plan.

Do the Bike Lanes Create Traffic Congestion?

A lane reduction can affect vehicle operations, particularly near busy intersections or during peak periods.

Possible effects may include:

• Longer traffic queues;
• Reduced passing opportunities;
• More delay behind turning vehicles;
• Changes in travel time;
• Different emergency or delivery movements; and
• Traffic diversion to nearby streets.

The same design may also:

• Reduce speeding;
• Reduce abrupt lane changes;
• Make vehicle paths more predictable;
• Provide cyclists with dedicated space; and
• Encourage travel by bicycle.

Current traffic counts, travel-time studies, speed data and public crash information are more useful than the original impression formed during construction.

What Are the Main Conflict Points?

Even where a bicycle lane exists, collisions may occur when:

• A driver turns right across the bicycle lane;
• A driver turns left across an approaching cyclist’s path;
• A vehicle enters from a driveway or parking area;
• A passenger opens a parked vehicle’s door;
• A driver parks or stops in the bicycle lane;
• A cyclist or motorist disregards a traffic signal;
• A cyclist leaves the lane to avoid debris or a parked vehicle;
• Road markings are faded or obstructed;
• Construction temporarily changes the travel pattern; or
• Visibility is limited by parking, vegetation, weather or darkness.

The existence of a bike lane does not automatically determine which road user caused a collision.

What Must Drivers Do Near a Bicycle Lane?

Drivers should:

• Maintain a proper lookout for bicycles;
• Check mirrors and blind areas before turning;
• Yield when required;
• Avoid parking or driving in a marked bicycle lane;
• Pass a cyclist at a reasonable speed;
• Provide at least three feet of clearance when overtaking; and
• Wait behind a cyclist when there is not enough space to pass safely.

Before turning across a bicycle lane, a driver should check for cyclists approaching from behind or alongside the vehicle.

What Must Cyclists Do?

A cyclist operating on a Virginia roadway generally has the rights and duties applicable to a vehicle driver.

Depending on the circumstances, cyclists must:

• Obey traffic signals and signs;
• Travel in the lawful direction;
• Yield when required;
• Use appropriate lighting at night;
• Signal turns when reasonably possible;
• Maintain a lookout; and
• Respond reasonably to road and traffic conditions.

A cyclist travelling below the normal speed of traffic generally rides as close as safely practicable to the right, but may move away from the curb or bicycle lane to avoid:

• Parked vehicles and opening doors;
• Debris;
• Potholes or drainage grates;
• Pedestrians;
• A lane that is too narrow to share safely;
• A right-turn-only lane; or
• Another unsafe condition.

Does a Traffic Violation Automatically Decide an Injury Claim?

No. A violation may be relevant, but its connection to the collision must still be evaluated.

When contributory negligence is alleged, the defendant generally must establish:

1. That the injured person failed to use reasonable care; and
2. That the failure was a proximate cause of the collision or injuries.

An insurer’s allegation does not independently establish contributory negligence.

Learn more about Virginia contributory negligence.

What Evidence Matters After a Collision on Llewellyn Avenue?

Potential evidence includes:

• Photographs of the bike lane and vehicle lane;
• Impact location and vehicle damage;
• The bicycle, helmet and damaged equipment;
• Bike-lane markings and signs;
• Traffic-signal phases;
• Parked vehicles and sight obstructions;
• Road construction or utility work;
• Street lighting;
• Dash-camera or action-camera footage;
• Business and residential surveillance;
• GPS or cycling-app data;
• Witness information;
• Police body-camera footage;
• 911 records; and
• City maintenance or work-order information.

Do not repair or discard a seriously damaged bicycle before determining whether an inspection is needed.

Can Norfolk Be Responsible for a Bike-Lane Condition?

Potentially, but the fact that a collision occurred in a city bike lane does not automatically create municipal liability.

A claim may require analysis of:

• Who controlled the road;
• Whether the issue involved design or maintenance;
• Whether a dangerous condition existed;
• Whether the city had legally sufficient notice;
• Whether it had a reasonable opportunity to respond;
• Whether the condition caused the collision;
• Whether governmental immunity applies; and
• Whether written notice was submitted on time.

Virginia Code § 15.2-209 generally requires written notice of a qualifying negligence claim against a city within six months after the claim accrues. The notice must describe the nature, time and place of the incident.

A police report, MyNorfolk request or discussion with a city employee should not automatically be treated as formal statutory notice.

How Long Does an Injured Cyclist Have to File?

A Virginia personal injury action generally must be filed within two years after accrual.

Other deadlines may apply when:

• The injured person is a minor or legally incapacitated;
• A government entity may be responsible;
• The driver leaves the scene or cannot be identified;
• A previous action was dismissed or nonsuited; or
• Another statute controls.

The city-notice deadline may expire substantially earlier than the ordinary personal injury filing period.

What Should You Do After a Bicycle Collision?

1. Call 911. Report injuries, traffic hazards and a driver who leaves the scene.
2. Address medical needs. Obtain emergency assistance when necessary.
3. Record the exact location. Include the intersection, direction of travel and lane.
4. Photograph the complete scene. Include markings, signs, parked vehicles and visibility.
5. Identify cameras and witnesses. Some recordings may be overwritten quickly.
6. Preserve the bicycle and equipment. Avoid repair or disposal when inspection may be needed.
7. Save electronic information. Preserve GPS, cycling-app and action-camera data.
8. Notify the appropriate insurers. Household automobile UM/UIM coverage may require evaluation.
9. Document treatment and losses. Keep medical, employment and property records.
10. Review government notice and filing periods. Do not wait for the city or insurer to complete an investigation.

Frequently Asked Questions

When were the Llewellyn Avenue bike lanes installed?

They were installed as part of the original Pilot Bike Loop developed from Norfolk’s 2015 Bicycle and Pedestrian Strategic Plan.

What part of Llewellyn was included?

The official pilot project identified Llewellyn Avenue between Olney Road and 35th Street.

Did Norfolk simply remove two lanes?

The city removed general-purpose travel lanes and reallocated the space for bicycle facilities while retaining curbside parking.

Do road diets reduce crashes?

FHWA reports crash reductions at many suitable road-diet sites, but the effect of a particular street requires local before-and-after data.

Do Norfolk’s figures prove that bike lanes are safer?

No. Current totals show that most reported bicycle crashes occurred outside the existing network, but crash rates require bicycle-volume, distance and exposure data.

Must cyclists always stay inside the bike lane?

No. A cyclist may need to leave designated space to avoid parked vehicles, debris, hazards, turning lanes or another unsafe condition.

May a vehicle cross a bike lane to turn?

Turning movements depend on the markings and traffic controls. Drivers must check for cyclists, yield when required and complete the movement safely.

Does a cyclist’s traffic violation automatically prevent recovery?

No. The conduct and its causal relationship to the collision must be established.

Can Norfolk be liable for a poorly maintained bike lane?

Potentially, but municipal claims involve control, duty, notice, causation, immunity and a short written-notice requirement.

Does hiring a lawyer guarantee compensation?

No. The outcome depends on the road-user conduct, evidence, injuries, insurance, deadlines and applicable defenses.

Discuss a Norfolk Bicycle Accident With Atkinson Law

A bicycle collision on Llewellyn Avenue may require analysis of driver conduct, cyclist conduct, lane markings, turning movements, surveillance footage, road work and insurance coverage.

Atkinson Law can review:

• The police and crash-scene evidence;
• Virginia cyclist and motorist duties;
• Bike-lane and intersection conditions;
• Contributory-negligence allegations;
• Medical and income losses;
• Liability and UM/UIM coverage;
• Potential municipal-notice issues; and
• Virginia filing deadlines.

Learn more about working with a Norfolk bicycle accident lawyer.

Call or text 757-648-8579 or contact Atkinson Law to request a consultation.