[takk309]

You are correct. The old way of thinking about roads/streets (synonyms in this case) is a place to move cars. The people centric view on transportation is new enough that there isn't much traction among the old guard at state DOTs. Changing something like functional class and what it means is very hard due to decades of history. As the saying goes, old dogs can't learn new tricks. This is especially true for government agencies. I have worked with cities that have a strong desire to make their transportation network people centric but the state won't help pay for it because the concepts don't move enough cars and to them, that is all that matters.