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HomeMy WebLinkAboutItem 01- Transportation Sidewalk Funding PrioritizationAGENDA ITEM SUMMARY Meeting Date: Meeting Type: Staff Contact/Dept.: Staff Phone No: Estimated Time: 6/26/2023 Work Session Drew Larson/DPW 541.726.3661 20 Minutes SPRINGFIELD Council Goals: Maintain and Improve CITY COUNCIL Infrastructure and Facilities ITEM TITLE: TRANSPORTATION SIDEWALK FUNDING PRIORITIZATION ACTION REQUESTED: Provide staff direction to prioritize sidewalk construction. ISSUE There is a large backlog of sidewalk repair and maintenance needs, which pose an STATEMENT: ADA compliance and liability issue. There are also many streets that lack sidewalks which limit safe/accessible pedestrian access. The Central Lane Metropolitan Planning Organization (MPO) awarded the City of Springfield approximately $1.34 million in Congestion Mitigation and Air Quality (CMAQ) funds in 2022 as part of the Walking and Biking Network Improvements project. ATTACHMENTS: 1: Council Briefing Memo 2: Socio -Economic Map 3: Sidewalk Service Request Map 4: Socio -Economic and Sidewalk Service Request Heat Map DISCUSSION/ FINANCIAL IMPACT: With the MPO funds, the City has approximately $1.5 million to address the immediate sidewalk issues throughout the community. At the May 16, 2022, Work Session, Council directed staff to apply for these funds and to return to Council to discuss prioritization concerns prior to sidewalk installation. Council wished to discuss a sidewalk repair and maintenance program and adjacent property owner involvement. However, due to the nature of CMAQ funding, it would be difficult to show improvement in air quality through sidewalk repair. Staff is therefore recommending that the City instead focus on construction of new sidewalks and potentially full reconstruction of sidewalk areas that have degraded beyond repair. Staff has prepared, in the Council Briefing Memo (attachment 1), three priority decisions that must be made to deliver this project with the available CMAQ funds. The prioritization decisions staff has identified include 1) reconstruction in the existing sidewalk system, construct new sidewalk by filling gaps, or a combination of the two, 2) where in Springfield staff should focus these efforts, and 3) whether to include adjacent property owner participation. MEMORANDUM City of Springfield Date: 6/26/2023 To: Nancy Newton, City Manager COUNCIL From: Drew Larson, Transportation Planner II BRIEFING Jeff Paschall, Community Development Director Subject: TRANSPORTATION SIDEWALK FUNDING MEMORANDUM PRIORITIZATION ISSUE: There is a large backlog of sidewalk repair and maintenance needs, which pose an ADA compliance and liability issue. There are also many streets that lack sidewalks which limit safe/accessible pedestrian access. The Central Lane Metropolitan Planning Organization (MPO) awarded the City of Springfield approximately $1.34 million in Congestion Mitigation and Air Quality (CMAC) funds in 2022 as part of the Walking and Biking Network Improvements project. COUNCIL GOALS/ MANDATE: Maintain and Improve Infrastructure and Facilities BACKGROUND: At the May 16, 2022 Work Session, Council directed staff to apply for funding to repair upheaved sidewalk damaged by tree roots to meet ADA standards that would fund a 3 — 4 year sidewalk replacement program. At the request of the Central Lane Metropolitan Planning Organization (MPO), staff prepared and combined three applications to address walking and biking network enhancements. The three elements included enhanced roadway crossings, rapid flashing beacons, and sidewalk repair and construction. Due to the available various funding sources and multiple applications from regional entities, the MPO awarded Congestion Mitigation and Air Quality (CMAC) funds to support sidewalk improvements in Springfield. Congestion Mitigation and Air Quality (CMAQ) Funding CMAQ funding is primarily focused to reduce congestion and improve air quality. The Congestion Mitigation and Air Quality (CMAC) Program is a Federal Highway Administration (FHWA) Federal -aid funding source for transportation projects and programs that reduce traffic congestion and contribute to air quality improvements (including tangible reductions of carbon monoxide, ozone precursors, or particulate matter pollution). CMAQ funding can be used for public transportation improvements, transportation options, pedestrian and bicycle infrastructure, vehicle and fuel efficiency, and intelligent transportation systems, traffic flow improvements, and road dust mitigation. Stand-alone bicycle and pedestrian projects must either complete gaps in an existing network or address biking and walking mobility issues near transit, schools, downtowns, employment centers, shopping, and medical services to provide people with the ability to walk or roll to reach critical destinations and services. MEMORANDUM 6/22/2023 Page 2 Prioritization Decision No. 1— Reconstruction and/or Construct New Sidewalks Sidewalks are an important infrastructure asset in an urban environment that provides a safe place for pedestrians to travel without vehicle conflict by otherwise having to walk in the street. The existing sidewalk network (attachment 2) show all areas of Springfield that currently contain sidewalks. Council's initial conversation at the May 16, 2022 Work Session focused on replacing broken and upheaved sidewalks in the existing sidewalk network through a City of Springfield sidewalk program. However, due to the nuances of CMAQ funding, focusing on repairs is likely not approvable as projects using CMAQ funding must demonstrate a quantifiable reduction in vehicle congestion or show a decrease in carbon emissions. For Oregon Department of Transportation (ODOT) to approve sidewalk reconstruction with CMAQ funds, staff must clearly show that the current infrastructure is in such poor condition that it presents a barrier to pedestrian travel. In other words, staff must demonstrate that people are choosing to drive that would otherwise walk if the sidewalks were in better condition. This will take considerable staff time and grant funds which will limit the amount of sidewalk constructed with this grant. Because of the air quality focus of CMAQ funding, staff explored an alternative approach that constructs new sidewalks to complete gaps that currently prevent pedestrian travel. Staff discussed new sidewalk construction with the MPO and ODOT and confirmed that CMAQ funds are easily approved for new sidewalk construction to fill missing gaps. There are multiple examples of missing sections of sidewalk citywide that provide crucial connections from neighborhoods to schools, businesses, and services. For example, Douglas Gardens Elementary is missing an entire length of sidewalk in the 37' Street right of way which provides a vital connection to the neighborhood to the northeast and northwest. In addition, there are blocks along major roads that are missing sidewalks near transit routes and adjacent to commercial developments. In addition, Springfield Safe Routes to School (SRTS) maintains an existing list of missing connections that highlight multiple needs around Springfield's schools. Prioritization Decision 1: IA. Replace sidewalks - Direct staff to proceed with initial intent to replace existing broken and upheaved sidewalk to provide safe ADA connections in the existing sidewalk network. 113. New sidewalks - Direct staff to identify and fill missing sidewalk and gaps in the pedestrian system to provide vital citywide pedestrian connections from neighborhoods to schools, commercial, and services. IC. Combination of A and B - Direct staff to identify vital missing sidewalk gaps and the most severe deteriorated sidewalks to deliver a combination of new and reconstruction sidewalks citywide. Prioritization Decision No. 2 — Prioritize Sidewalk Locations Council's conversation in 2022 focused on Springfield's disadvantaged neighborhoods and asked staff to prepare data regarding Springfield's disadvantaged areas. The Lane Council of Governments (LCOG) maintains Title VI data which defines Historically Excluded Populations as concentrations of one or more of these four socio-economic factors: • Minority Population • Elderly Population MEMORANDUM 6/22/2023 Page 3 • Households in Poverty • People with Disabilities. Springfield staff and LCOG prepared a Title VI map (attachment 4) showing areas of Springfield with up to 4 socio-economic factors. There are several areas of Springfield that contain multiple Title VI factors including around Downtown and Mill Street, Gateway, Q Street, and sections of mid -Springfield lying north and south of Main St. These areas can be further explored on LCOG's website, https://www.Icog.org/thempo/page/socio-economic-data, which shows additional data such as percent of renters and zero car households. Staff seeks direction from Council on which areas and/or services in Springfield to prioritize with this grant. As noted above, staff has identified missing gaps primarily around Springfield's schools. However, CMAQ funding can support sidewalk construction near transit, schools, downtowns, employment and shopping centers, and medical services. Prioritization Decision 2: 2A. Historically Marginalized Neighborhoods - Focus sidewalk construction or reconstruction (priority 1) to meet ADA standards within Title VI historically disadvantaged neighborhoods or citywide and identify which neighborhoods to focus staff's effort: • Downtown • Gateway • Mid -Springfield • Q Street 2B. Service Areas - Focus sidewalk construction or reconstruction around the following services or service areas within Springfield: • Schools • Transit • Downtown • Employment and Shopping Centers • Medical Services 2C. Service Areas serving Historically Marginalized Neighborhoods Prioritization Decision No. 3 — Ad*acent Property Owner Participation At the 2022 Work Session, Council expressed a desire to explore options for property owner participation in sidewalk improvements. Existing sidewalk maintenance is typically the responsibility of the adjacent property owner which includes basic upkeep to full reconstruction. Council's discussion noted that replacement in some of Springfield's neighborhoods, specifically historically disadvantage areas, may have difficulty with costs associated with reconstruction. As such, City staff could partner with property owners to pay a portion of the sidewalk reconstruction with delivery of this grant. To work with adjacent property owners to reconstruct existing sidewalk, Council will need to establish a clear policy with this grant funding for staff to implement. This could include a flat rate, such as 25 — 50% of the associated cost being the responsibility of the adjacent property owner. Or, as discussed in the previous Work Session, Council could direct staff to create an income contingent sliding scale to help those in difficult financial situations. MEMORANDUM 6/22/2023 Page 4 New sidewalk construction is typically delivered at the time of development, e.g., land division or site plan review, or by grant funds such as Safe Routes to School or MPO Discretionary Funding. Historically, adjacent property owners are not required to participate with grant funded projects. Council has the option to implement a Local Improvement District (LID) in which adjacent property owners pay their share of right of way improvements, including new sidewalk construction. Council could elect to pursue a LID with this grant which could include a cost share between property owners and the City. However, the LID process can take up to one year which will delay delivery of this grant which could cause an issue with the Federal timeline. To use the awarded CMAQ funding, the City must design and construct sidewalks by Federal Fiscal Year 2025 or request that the MPO reprogram the funds to a later year. Prioritization Decision 3: 3A. No owner contribution - Zero property owner participation (staff recommend with this grant). 3B. Partial contribution - Direct staff to partner with property owners to pay 25 — 50% of the associated costs either through a policy to reconstruct or a Local Improvement District for new sidewalk construction. 3C. Sliding scale - Direct staff to develop an income contingent sliding scale to reconstruct sidewalks in historically disadvantaged neighborhoods. RECOMMENDED ACTION: Provide staff direction from priorities 1, 2, and 3 to design and deliver sidewalk construction. 0 Internatio, - -5 Beltli,�Ell, � Beltline Rd�� � 0 Rive I(\ Harlow R6 Oakdale Ave Fairview Dr c SPRINGFIELD OREGON City of Springfield Sidewalk Service Requests Urban Growth Historically Excluded Boundaries Populations Road Centerlines Number of the Four 0 Factors (Disabled, 1 Elderly, Minority, and Poverty) with a Percent 2 dew a above the MPO 3 Average 4 - ' - i=iayaan-tsrrd s Rd_ -' olanda Ave -�\ Creek Rd _ Ca V)_ s Olympic Stwy 7,26 ,high Ra�� Blvd St Ln F00 St Ln Ln s Main St - Ln Ln Virginia Ave L --daisy St \7'- qW Rd J- N 0 0.5 1 2 Miles