HomeMy WebLinkAboutItem 01 Franklin Boulevard Design
Meeting Date:
Meeting Type:
Department:
Staff Contact:
Staff Phone No:
Estimated Time:
September 10, 2007
Work Session
Public Works. ff8
TomBoyatt'~ ....
747-1354
60 minutes
AGENDA ITEM SUMMARY
SPRINGFIELD
CITY COUNCIL
ITEM TITLE:
FRANKLIN BOULEVARD DESIGN
ACTION
REQUESTED:
ISSUE
STATEMENT:
Provide direction to staff regarding the set of concepts for further analysis for
Franklin Boulevard alignment and cross section, McVay Boulevard cross section,
and the Franklin/Mc V ay intersection.
Staff is seeking Council direction on the set of Franklin Boulevard concepts to
move forward into the analysis and public process phase of the Franklin Boulevard
Study. The Study is at a point where the City must decide which set of alignment,
cross section and intersection concepts will move forward for technical and public
evaluation. While the Project is scoped to process up to 10 concepts, the final
recommendation of a Preferred Alternative may adapt from some or all concepts, in
order to create a viable alternative for the entire corridor.
ATTACHMENTS:
DISCUSSION/
FINANCIAL
IMP ACT:
Attachment A: Council Briefing Memorandum
The attached Council Briefmg Memo, and assorted project documents, provide
project background and information and a description of nine potential concepts for
further analysis and refinement. The City's consulting team is under contract to
evaluate up to 10 concepts. Staff is recommending a set of nine concepts to move
forward for evaluation as noted in the Briefing Memo, holding one concept in
reserve to address an additional concept should that come to light during the
evaluation process.
As the concepts for alignment, intersection and facility cross sections are asse~sed,
the goal will be to reach agreement among stakeholders, City and agency staff on a
Preferred Alternative for a future improvement of Franklin Boulevard and a portion
of the McVay Highway in Glenwood. The preferred alternative may incorporate
elements of the various concepts that are evaluated.
While the goal is to reach general agreement on the Preferred Alternative, it is
possible that a project of this magnitude and complexity may not be supported by
all stakeholders. Staff is committed to bringing forward both a recommended
Preferred Alternative as well as a fair representation of any disagreements with that
Alternative. Additionally, the Project scope includes opportunities for public and
stakeholder input via the public hearings process to incorporate the Preferred
Alternative into City planning documents. It is also likely that a project of this
scale, that is on a state highway, and that will likely use federal funds, will go
through either an Environmental Assessment or Environmental Impact Statement
under the federal NEP A requirements. The NEP A process is also an open public
process that will allow input to the ultimate construction project.
MEMORANDUM
City of Springfield
Date:
To:
From:
Subject:
September 6, 2007
Gino Grimaldi, City Manager
Tom Boyatt, Transportation Manager<t/3,
COUNCIL
BRIEFING
MEMORANDUM
FRANKLIN BOULEVARD DESIGN
ISSUE:
Staff is seeking Council direction on the set of Franklin Boulevard concepts to move
forward into the analysis and public process phase of the Franklin Boulevard Study.
The Study is at a point where the City must decide which set of alignment, cross
section and intersection concepts will move forward for technical and public
evaluation. While the Project is scoped to process up to 10 concepts, the final
recommendation of a Preferred Alternative may adapt from some or all concepts, in
order to create a viable alternative for the entire corridor.
BACKGROUND:
The Franklin Boulevard Study began in earnest last May with a series of Stakeholder
interviews. (A copy of the interview summary, participants and text of comments is
available at your request.) The purpose ofthe interviews was to get a sense of the
issues and opportunities for Franklin in Glenwood and to identify interested parties.
Stakeholder Advisory Committee
After stakeholder interviews, staff developed a roster for a Stakeholder Advisory
Committee (SAC) and tested and refined that list based on input from interested
parties, the Planning Commission and Council. The SAC includes property and
business owners, development community representation, and representatives from
SEDA, ODOT, L TD, and the Glenwood Community. The SAC met four times in
July and August. The first two meetings were to set the group's operating and
decision making protocols, get up to speed on the project's purpose and process,
define expectations for Study outcomes, and draft a problem statement. Attached to
this Memo as Attachment A Exhibit 1 is the Franklin Boulevard Study Problem
Statement, as revised by staff and reviewed by the SAC. Attached to this Memo as
Attachment A Exhibit 2 is the list of SAC Franklin Study Outcomes. It is worth
noting that the Study Outcomes are divided up into two groups: outcomes that apply
regardless of the recommended design, and outcomes that will be used to evaluate
alternative concepts and designs. (A copy of the SAC Protocols and Ground Rules
are available at your request.) The second two meetings were to review concept
typology generated from the focused design workshop (7/31- 8/2) and provide input
to alignments, cross sections, and intersection concepts to move forward.
Attachment A Exhibit 3 is a set of Franklin Boulevard Possible Street Cross
Sections and Concepts for Intersection of McVay Highway and Franklin
Boulevard. These street and intersection concepts were reviewed by the SAC. The
Open House Alignments, copy provided at meeting, are those recommended to move
forward by the SAC and staff. Attachment A Exhibit 4 is Concepts Set Aside,
which shows several alignments that were considered and set aside and lists the pros
and cons of each alignment.
Design Workshop and Open House # I
As noted above, the project team spent three focused days in design workshop mode
identifying and vetting potential concept ideas with City and partner agency staff and
the SAC. On August 2nd the team hosted Open House # 1 to provide the broader
public with an opportunity to view and discuss the working concepts and give input.
Several area radio and television stations picked up the Open House and attendance
was quite positive. A copy of the Franklin Boulevard Study Open House #1
Summary is attached to this Memo as Attachment A Exhibit 5.
Attachment A
Page 1 of 34
Recommended Concepts for Evaluation
In the weeks following Open House #1, the project team worked to develop a list of
ten concepts for further analysis. The concepts for further analysis are based on
public, SAC, partner agency and City staff input. These ten concepts are described
below. Staffwill provide detailed large format drawings of the nine proposed
concepts at the September 10th Work Session. The tenth concept is a placeholder
for additional analysis should the need arise during the process. These nine
Recommended Concepts for Evaluation are shown in Attachment A Exhibit 6.
· 14th Street Alignment, Multiway Boulevard, widened to north
· 14th Street Alignment, Arterial, widened to north
· Franklin Alignment, Multiway Blvd., center widening
· Franklin Alignment, Multiway Blvd., widened to south
· Franklin Alignment, Arterial, center widening
· Franklin Alignment, Arterial, widened to south
· McVay Alignment, Arterial, center widening
· McVay Franklin Intersection, Signalized
· McVay Franklin Intersection, Roundabout
· Placeholder for additional concept analysis
There are several important aspects to these concepts. The first is that the concepts
are not design level work, but are instead developed for analysis purposes. The
evaluation and public review of the concepts will guide their conversion irito a single
corridor alternative rycommendation.
The second aspect is that in each case with the roadway alignments, the widest right
of way width is used in order to understand the greatest extent of potential impacts
and benefits. Because the cross section elements (see Attachment A Exhibit 3) each
have width ranges, and because the final alternative may incorporate some or all of
these cross section elements, understanding the greatest impact allows the project
team to work within that area but does not bind the final alternative to use the entire
area. In other words, the width of the Preferred Alternative may (I) vary, and may
(2) not be as wide as the cross sections developed for analysis purposes.
Next Steps
Once direction is provided on a set of concepts to evaluate, the project team will
work through an evaluation framework of each based on the Franklin Study
Outcomes identified by the SAC in July (See Attachment A Exhibit 2). The SAC is
scheduled to convene twice in October to process the concept evaluation. City staff
will also evaluate the concepts. Attachment A Exhibit 7 shows the
Recommendation Process and Project Schedule. Staff anticipates another update
for Council in early 2008, with a follow-on recommendation and adoption process in
the Spring. .
RECOMMENDED
ACTION:
Provide direction to staff regarding the set of concepts for further analysis for
Franklin Boulevard alignment and cross section, McVay Boulevard cross section,
and the Franklin/McVay intersection.
Attachment A
Page 2 of 34
"
,I
Franklin Boulevard Study Problem Statement
Franklin Boulevard is the major east-west route within the Glenwood
community and one of only four east-west arterials in the region that connect
Eugene and Springfield. It is an important gateway to Eugene, downtown
Springfield, the University of Oregon, and Glenwood. Franklin Boulevard is
a five lane roadway with frequent business accesses and bus rapid transit
service that operates in mixed traffic. The corridor has sidewalks in some
places, but they are narrow and often located on private property or
easements.
The Glenwood area, the City of Springfield's first urban renewal district, is
poised for extensive redevelopment. The principal focus for redevelopment.
has been near the intersection of Franklin Boulevard and the McVay
Highway. The proposals for this area, first outlined in the Glenwood
Riverfront Plan, favor higher density, mixed-use development oriented
toward the river. In their present form, neither Franklin Boulevard nor McVay
Highway support these redevelopment goals. Limited transportation dollars
combined with the high cost of facility improvements will make these
improvements a challenge to deliver.
The current condition and appearance of both corridors is widely perceived
as an impediment to the area's economic renewal. Franklin Boulevard's
visual environment is defined by frequent access points, unappealing and
competing signage, minimal landscaping, inefficient land development and
unorganized parking. The Willamette River, a significant environmental
asset, is largely ignored and disconnected from the adjacent corridors and
neighborhoods.
The existing Franklin Boulevard right-of-way is constrained. Any future .
improvements will require widening the right-of-way, and any widening of
Franklin Boulevard will require property acquisition. Some owners of
existing businesses are concerned that improvements will either deprive their
property of all economic value or devalue their property by making it
unsuitable to current uses. Some residents and property owners are
concerned that plans that encourage redevelopment of parcels and relocation
of current uses will change the community fabric and ultimately harm
Glenwood. Many stakeholders are excited about redevelopment
opportunities in Glenwood and see improvements to Franklin Boulevard as
an important way to invigorate the area.
Attachment A Exhibit 1
Page 3 of 34
REVISED 8/24/07
,I
Franklin Boulevard serves a wide-range of transportation modes including
through and local car and truck traffic, transit, bikes and pedestrians in a
constrained right-of-way. In the future, Franklin Boulevard will continue to
be a key regional arterial and will need to accommodate 30 ,000~35,000 cars
and trucks each day and offer sufficient mobility and accessibility to support
growth in both local and regional traffic, as well as a substantial increase in
bike and pedestrian trips. McVay Highway will need to accommodate a
similar mix of local and through trips. Both corridors have a variety of access
management, parking, connectivity, safety and operational issues that require
correction or improvement.
The intersections of Franklin Boulevard and the McVay Highway and
Franklin Boulevard and Glenwood Boulevard will need to accommodate
anticipated increased traffic volumes. The McVay Highway/Franklin
Boulevard intersection today is a "T" configdration; in the future, a fourth
intersection leg is planned to allow for access north into the riverfront area.
The Glenwood Boulevard/Franklin Boulevard intersection is the area's
gateway from 1-5 and will need to accommodate traffic generated from new
uses in the broader area including the Glenwood Riverfront and a proposed
University of Oregon basketball arena.
Franklin Boulevard is a bus rapid transit corridor, where buses operate in
mixed traffic. Lane Transit District has built temporary bus rapid transit
stations that can be replaced in their current locations or rebuilt in new
locations. Any design for the corridor must accommodate bus rapid transit
stations that support future land uses.
Attachment A Exhibit 1
Page 4 of 34
. "
Franklin Boulevard Study outcomes
Revised by SAC, July 18, 2007
A successful Franklin Boulevard Study will result in:
Process outcomes (outcomes that apply regardless of the recommended design)
1. A process that is collaborative and transparent and is focused on achieving consensus
around transportation improvements and providing certainty about future plans.
2. A project that minimizes or equitably addresses impacts to existing business owners,
property owners and residents.
3. A funding strategy in which costs are paid in proportion to benefits received.
Evaluative outcomes (outcomes used to evaluate alternative designs)
1. A project that benefits the future business community as a whole.
2. A cost-effective project
3. Improvements to Franklin Boulevard and McVay Highway that promote redevelopment
in Glenwood.
4. Designs that are distinctive.
5. Designs that accommodate all transportation modes including car and truck traffic,
buses, cyclists, pedestrians and alter-abled people.
6. Transportation improvements that can accommodate long-term transportation needs in
the area.
7. Facility improvements that enhance the natural environment and include opportunities
to incorporate sustainable design principles.
8. A project that creates an active and safe street environment.
9. A project that improves connections to the river.
Attachment A Exhibit 2
Page 5 of 34
.Possible street cross-sections
Franklin Boulevard
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· Lanes: 11' to 13'
· Transit lanes: 23' to 35'
· Medians with trees: 10' to 14'
· Bike lane: 6'
· Parallel parking: 8'
· Angle parking: 18'
· Access lane (multiway boulevard): 10' to 12'
· Sidewalk: 12' to 16'
· Sidewalk with planting strip: 16' to 20'
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Franklin Boulevard Study open house #1 summary
Thursday, August 2,2007
Overview
The City of Springfield hosted an open house on
Thursday, August 2, 2007. The open house was
the final event held during a three-day design
workshop aimed at developing concepts to be
evaluated during the Franklin Boulevard Study.
The open house was the public's first
opportunity to review possible roadway cross-
sections for Franklin Boulevard and possible
designs for the intersections of Franklin
Boulevard and the McVay Highway, and
Franklin Boulevard and Glenwood Boulevard.
These concepts were developed during the
workshop by the consultant team in consultation with City, Oregon Department of
Transportation (ODOT) and Lane Transit District staff, and the project's Stakeholder
Advisory Committee.
Participants at the open house were invited to review the concepts and provide input about
what they liked and did not like about each concept. Participants provided input by talking
with staff and by completing a written comment form.
About 30 community member attended the open house, though not all attendees signed-in
or completed a comment form. The five comment forms submitted are summarized here.
The comment forms were completed by two residents, one property owner and two people
who neither lived nor owned property in Glenwood. All those who completed the
comment form drove the corridor frequently but did not often walk, bike or take transit in
the area.
Study outcomes
When asked how important each of the proposed study outcomes are, most respondents
said that all of the outcomes were important. All outcomes, except "a cost-effective project,".
received an average score of four or higher on a scale of one to five with one being least
important and five being most important.
All participants who ranked the importance of the outcomes" designs that accommodate all
transportation modes" and "transportation improvements that can accommodate long-term
transportation needs in the area" said that they were very important.
Attachment A Exhibit 5
Page 2q_~f_~_
Average score (out of five for most important) for each project outcome:
Outcome Average score
(possible 5)
A project that benefits the future business community as a 4.4
whole.
A cost-effective project. 3.7
Improvements to Franklin Boulevard and McVay Highway 4
that promote redevelopment in Glenwood.
Designs that are distinctive. 4.5
Designs that accommodate all transportation modes 5
including car and truck traffic, buses, cyclists, pedestrians
and alter-abled people.
Transportation improvements that can accommodate long- 5
term transportation needs in the area.
Facility improvements that enhance the natural environment 4.8
and include opportunities to incorporate sustainable design
principles.
A project that creates an active and safe street environment. 4.7
A project that improves connections to the river. 4.7
One participant recorded on his comment form that only minimal improvements to the
Franklin Boulevard corridor should be considered. Other participants said that bike paths
and improved connections to 1-5 were important outcomes of this project.
Franklin Boulevard concepts
Both participants who responded to questions about the Franklin Boulevard concepts,
preferred the multiway boulevard concept. One participant noted that the widening
Franklin to the south along the current alignment was preferable to the 14th Street
alignment.
One participant noted that the
green concept, that would shift
Franklin south of its current
alignment west of Glenwood
Boulevard and north of its
current alignment east of
Glenwood Boulevard, that was
set-aside should be considered
further. This participant
suggested shifting the alignment
north to avoid impacts to the
Lane Transit District and state motor pool facilities.
ConcelJts set aside
Anecdotally, project staff reported strong interest in the multiway boulevard concepts from
participants at the open house. Many participants noted that the multiway boulevard
concepts could help to revitalize the area. The owners of one property south of Franklin
Attachment A Exhibit 5
P~g_e2_~~f 34 ___
Boulevard attended the open house and stated their preferences for leaving Franklin
Boulevard alone.
Intersection.of Franklin Boulevard and the McVay Highway
Both participants who responded to questions about the Franklin Boulevard and McVay
Highway intersection noted their preference for the roundabout design. Project staff
verified that this was consistent with the viewpoints of other open house participants.
Attachment A Exhibit 5
P!~~ 22 of 34 n__.
Recommended Alignment, Cross Section
and Intersection Concepts for Evaluation
- -
Attachment A Exhibit 6
Page 23 of 34
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