AGENDA #2b
MEMORANDUM
TO: Mayor and Town Council
FROM: W. Calvin Horton, Town Manager
SUBJECT: Public Forum: Sidewalk and Bicycle Facilities Construction Plan for 2004-2005
DATE: November 8, 2004
This Public Forum has been scheduled to receive public input on the development of a proposed Sidewalk and Bicycle Facilities Construction Plan for 2004-2005. This memorandum provides an update on the status of the Town’s facilities construction program and offers a preliminary recommendation of sidewalk and bicycle facilities projects for fiscal year 2004-2005.
We recommend that the Council refer all comments received at tonight’s forum to the Chapel Hill Active Living by Design Partnership Advisory Board, the Bicycle and Pedestrian Advisory Board, the Historic District Commission, the Transportation Board, and to the Town Manager for a follow-up report to the Council at its December 6 meeting.
SUMMARY
This report provides preliminary recommendations to:
On October 11, 2004, the Town Council called a public forum on the Sidewalk and Bicycle Facilities Construction Plan for 2004-2005 for November 8, 2004. The Town Council is scheduled to consider action on the Sidewalk and Bicycle Facilities Construction Plan for 2004-2005 on December 6.
The Council last held a Public Forum on a preliminary sidewalk and bicycle facilities construction plan in Fiscal Year 2002-03. In Fiscal Year 2003-04, the Town Council directed the Manager to continue to work using the list of projects approved in September 2003, (see Attachment 1).
A status report on the projects included in the 2003-04 Construction Plan is included as Attachment 2.
On October 11, 2004, the Town Council approved use of $50,000 of residual Capital Improvements Program funds from 2003-04, to construct missing sections of sidewalk on Legion Road as funding permits.
2003 General Obligation Bonds
In October 2004, the Town sold $4 million in bonds as the first of four projected bond sales between 2004 and 2009. The first issue includes $600,000 for sidewalk construction, $100,000 for pedestrian amenities and $300,000 for neighborhood traffic calming and pedestrian and bicycle safety improvements. This report proposes a plan for spending the following elements from the first Bond issue:
· $600,000 for sidewalk construction,
· $100,000 for pedestrian amenities, and
· $30,000 for pedestrian and bicycle safety improvements.
State Transportation Direct Allocation funds
The $200,000 in Direct Allocation funds will be available for sidewalk construction for the Durham, Chapel Hill, Carrboro region from October 2004. If the Town Council chooses to apply for a portion of these regional funds, a 20 percent local match would be required.
Town Capital Improvements Program
The Town Capital Improvements Program has been the traditional source of funds for constructing sidewalks and bicycle facilities in the Town. Because of the availability of Bond funds, the adopted 2004-05 Capital Improvements Program does not include funds for constructing sidewalks and bicycle facilities.
Community Development Block Grant Program
The Federal Community Development Block Grant Program is a potential source of funds for sidewalks serving the Northside and Pine Knolls communities. The Council has authorized a program of activities which includes Neighborhood Revitalization in these areas. Sidewalk construction is an eligible use of funds allocated for Neighborhood Revitalization.
Sidewalk Assessments
Another funding option for sidewalks is the assessment process outlined in the North Carolina General Statutes, Chapter 160A, Article 10. Under this article, property owners may file a petition seeking the installation of a sidewalk and the assessment of a portion of the costs of the sidewalk to the abutting properties. If such a petition is signed by the requisite number of owners representing the requisite front footage, the Council can elect to construct the sidewalk and charge the stated portion of the costs to the benefited properties. Provisions can be included for the payment of the assessments over a number of years. In addition, the Town Charter Section 6.11 provides a procedure under which the Town can, under certain circumstances, install a sidewalk without a petition and assess the cost thereof against abutting properties. This process has not been used in at least 20 years and we are not recommending it to fund the projects we propose.
On October 27, 2004, the Town Council adopted the Bicycle and Pedestrian Action Plan as a component of the Town’s Comprehensive Plan. The Action Plan is a long-range plan which identifies proposed new and improved bicycle and pedestrian facilities for the Town. The Action Plan identifies the following facility categories:
ANNUAL CONSTRUCTION PLAN
In prior years, the Town’s Annual Sidewalk and Bicycle Facilities Construction Plan focused on the construction of sidewalks and the provision of bicycle facilities. The preliminary Construction Plan we recommend expands the scope of the annual plan to match the facility categories identified in the Bicycle and Pedestrian Action Plan. We have applied the following principles to prepare a preliminary construction plan for 2004-2005:
Sidewalks
Sidewalk projects have been recommended based on a priority list (see Attachment 3). The priority list was generated by applying the Town’s adopted ranking system (see Attachment 4) to proposed sidewalks identified in the Bicycle and Pedestrian Action Plan. We have separated the priority list into two parts, Town maintained streets and State maintained streets (please see Attachments 5 and 6). This makes it easier to identify sidewalk construction that could be funded by the State and with federal funding. We recommend that Town funds be used to provide sidewalks on Town maintained streets, except where Town funds can be used as a local match to secure State funds.
Annually the Durham-Chapel Hill-Carrboro Metropolitan Planning Organization (DCHCMPO) receives Federal Surface Transportation Program Direct Allocation (STPDA) funds. These funds may used for the construction of sidewalks subject to the provision of a local match. In 2003, and again in 2004, the Town was able to secure an additional $100,000 of (STPDA) funds for sidewalks on Airport Road.
During 2004-2005, we recommend that from the $600,000 allocated for sidewalk construction in the 2004 Bond issue, $550,000 is used for sidewalk construction on Town maintained streets and the remaining $50,000 is set aside as a local match to obtain (STPDA) funds.
The sidewalks priority list includes several existing sidewalks that are constructed with Chapel Hill gravel. There are differing opinions about the suitability and durability of such sidewalks. We believe that the questions of whether this type of facility is appropriate or should be replaced should be considered on a case by case basis.
It has been the Council’s practice to authorize sidewalk projects that are constructed by both contractors and our in-house crew. Under State Law, the Town may build projects with its own work force as long as the entire cost of the project does not exceed $175,000, and the cost of labor alone does not exceed $75,000.
We have applied the following guidance which is included in the Bicycle and Pedestrian Action Plan to make our recommendations:
We propose a broad list of projects that would provide the flexibility to make the best use of Town construction crews and use Town funds in the most efficient and effective manner possible. At this time, except where indicated with an asterisk, we have not undertaken detailed investigation of the constraints to construction and so have applied a straight line unit cost estimate for each project of $70 per linear foot. Projects may cost more and some less depending on the site specific circumstances and environmental constraints, right-of-way acquisition, related infrastructure such as retaining walls and drains.
1. Town Streets:
The following projects are listed according to our assessment of feasibility. (Please see Map 1, the map shows the projects keyed to the numbers listed below). The estimated total cost of the following projects is approximately $900,000. The $50,000 of residual Capital Improvements Program funds from 2003-04, have already been approved by the Council to construct missing sections of sidewalk on Legion Road, and $65,000 of Community Development Program funds have been allocated for the sidewalk on West Rosemary Street at Roberson Street (see project number 3).
1* Legion Road (west side) north of Clover Drive
Comment: On October 11, 2004, the Town Council approved use of residual Capital Improvements Program funds from 2003-04, to construct missing sections of sidewalk on Legion Road as funding permits.
2 Legion Road (east side) south from Europa Drive
Comment: On October 11, 2004, the Town Council approved use of residual Capital Improvements Program funds from 2003-04, to construct missing sections of sidewalk on Legion Road as funding permits.
3* West .Rosemary Street (south side) at Roberson Street:
Comment: The project requires the relocation of a utility pole and the realignment of overhead traffic signals. Community Development Program funds have been allocated for this project.
4. East Rosemary Street (north side) 157 E. Rosemary Street to Henderson Street
Comment: This sidewalk is located in an historic district. It has an existing Chapel Hill gravel sidewalk. Typically the Historic District Commission would consider this proposal for its appropriateness in the historic district.
5*. Legion Road intersection with Ephesus Church Road
Comment: On October 11, 2004, the Town Council approved use of residual Capital Improvements Program funds from 2003-04, to construct missing sections of sidewalk on Legion Road as funding permits. The scope of work in this short section includes drainage improvements and a commercial driveway apron.
6. Curtis Road west side from Clayton Road to Elliott Road
Comment: This project would impact one property by cutting into an existing sloping front yard. Regrading the slope could impact existing trees and landscaping.
7. West Rosemary Street, south side at S. Graham Street
Comment: An easement is required. The Council has previously indicated that completing Rosemary Street is a high priority.
8. West Rosemary Street, north side, west of Church Street
Comment: An easement is required. The Council has previously indicated that completing Rosemary Street is a high priority.
9.* West Rosemary Street, north side, east of Church Street
Comment: In the past, property owners have not agreed to provide an easement. The Council has previously indicated that completing Rosemary Street is a high priority.
10. Westminster Drive, north side, east of Banks Road
11. Ransom Street, east side from McCauley to University Drive.
Comment: There is an existing Chapel Hill gravel sidewalk in this location. The project is located in an historic district. Typically the Historic District Commission would consider this proposal for its appropriateness in the historic district.
12. Prestwick Road, north side at rear of shopping center
Comment: An easement is required
13. Cameron Avenue, north side, northeast corner at Merritt Mill Road
Comment: There is an existing Chapel Hill gravel sidewalk in this location. The University is currently constructing a parking lot in this location. The sidewalk may be included in that work.
14. Vance Street, south side Ransom Street to Pittsboro Street
Comment: There is an existing Chapel Hill gravel sidewalk in this location. The project is located in an historic district. Typically the Historic District Commission would consider this proposal for its appropriateness in the historic district.
15. Kenan Street, east side, Cameron Avenue to Franklin Street.
Comment: There is an existing Chapel Hill gravel sidewalk in this location. The project is located in an historic district. Typically the Historic District Commission would consider this proposal for its appropriateness in the historic district. The project will impact front yards.
16. Kingston Drive, east side, south from Weaver Dairy Road
17. West University Drive, south side from Ransom Street to Westwood Drive
Comment: The project is partially located in an historic district, and partially abuts an historic district. Typically the Historic District Commission would consider this proposal for its appropriateness in the historic district.
18. Hamilton Road, east side from Cleland Drive to Flemington Road
Comment: Provides connection to existing off-road path which runs parallel to Fordham Boulevard and connects Cleland Drive with Estes Drive.
19. Flemington Road, Hamilton Road to Hayes Road
20. North Street, north or south side, Airport Road to Henderson Street
Comment: Intersection of North Street and Henderson Street is located in a historic district. Typically the Historic District Commission would consider this proposal for its appropriateness in the historic district. The project would impact on front yards and trees. Easements will be required.
21. Piney Mountain Road, north side, Forest Creek Drive to Priestly Circle Drive
Comment: There is an existing sidewalk on south side of street. A sidewalk here may impact existing trees.
22. Umstead Drive, south side, Village Drive to Estes Drive extension.
2. State Streets
The projects we have identified on State streets are considered to be some of the least difficult to construct (please see Map 2). The projects which are undertaken will depend on the amount of funds the Town is able to secure from the Metropolitan Planning Organization (MPO). The estimated total cost of the following projects is approximately $360,000. The total amount of funding available for sidewalk construction projects from the MPO is $200,000, for the Durham-Chapel Hill-Carrboro region.
1. Airport Road west side north and south of Northfields Drive
Comment: The Town may be able to extend the scope of scheduled NCDOT work to install a stop light at Northfields Drive which is required in accordance with a stipulation for the development of Chapel Ridge Apartments. On September 27, 2004, the Council received the NC 86 Airport Road study, which could result in additional recommendations for improvements to the road. The Council will hold a Public Forum on the study November, 22, 2004.
2. Fordham Boulevard, west side from Ephesus Church Road to Elliot Road
Comment: This sidewalk would link neighborhoods to the Eastgate Shopping Center, Village Plaza and the Booker Creek Greenway.
3. Estes Drive, south side Franklin Street to Willow Drive
Comment: This sidewalk would connect the existing sidewalks on Franklin Street with worn paths to the Community Center.
4. Homestead Road, south side from Southern Orange Human Services to Shelter
Comment: This sidewalk would connect the women’s shelter to the existing sidewalk at the Southern Orange Human Services Center.
5. Culbreth Road, south side, 15-501 to Culbreth Park Drive
Comment: This sidewalk would link the proposed Morgan Creek Greenway and the existing sidewalks on Culbreth Road to South Columbia Street. South Columbia Street is scheduled for State funded improvements including sidewalks in 2007.
6. Fordham Boulevard, east side, at northeast corner intersection with Estes Drive.
Comment: This would provide a sidewalk in place of a worn dirt path to an existing pedestrian signal crossing.
7. NC 54, south side west of intersection with Finley Golf Course Road
Comment: This sidewalk would complete a short missing link in otherwise continuous facility to connect the existing sidewalk along NC Highway 54 to the shopping center and the existing off-road path to Meadowmont and the Friday Center.
Crossing Improvements
The Bicycle and Pedestrian Action Plan identifies approximately 50 locations for new crossings or crossing improvements. Most (approximately 40) of these are located on State maintained streets. We recommend that Town funds primarily be used for Town maintained streets. Five Town-maintained crossing locations have been identified by the staff as justifying priority consideration for improvement: Cameron Ave. and Ransom Street; East Rosemary Street and Henderson Street; East Rosemary Street and Hillsborough Street; West Rosemary Street and Church Street; and West Rosemary Street and Graham Street.
During 2004-2005, we recommend improvements to include pedestrian activated signals with countdown displays, improved markings and signage at the following Town-maintained crossing locations where there are high pedestrian volumes:
We recommend that these improvements be funded from the $100,000 allocated for pedestrian amenities in the 2004 Bond sale. We also recommend that the Town contact the North Carolina Department of Transportation (NCDOT) about undertaking feasibility studies for crossing improvements at the State- maintained crossing locations identified in the Bicycle and Pedestrian Action Plan.
Off-Road Paths
The Bicycle and Pedestrian Action Plan identifies 8 potential off-road paths. It recommends giving highest priority for the construction of facilities linking Manning Drive to Prestwick Road as part of a combination of improvements to link the Meadowmont, Glen Lennox and the Oaks neighborhoods to the University Main Campus.
During 2004-2005, we recommend that the Town contact the North Carolina Department of Transportation (NCDOT) and the University of North Carolina to begin investigating the feasibility of the proposed facilities identified in the Bicycle and Pedestrian Action Plan. These facilities are either located alongside State maintained streets or on UNC property. These will likely be long-term projects. We anticipate that in future years these facilities would be funded from Bond funds allocated for the construction of sidewalks.
Advisory Bicycle Routes
The Bicycle and Pedestrian Action Plan calls for 2 or 3 routes to be selected as a pilot initiative.
During 2004-2005, we recommend that the Town investigate and sign the following routes as pilot projects because they are connected and would encourage increased bicycle activity between Meadowmont, University Mall, Village Plaza and the University main campus:
We recommend that the Town Council set aside $30,000 from the neighborhood traffic calming and pedestrian and bicycle safety improvements allocation of the 2004 Bond Sale for these items.
Bicycle Facilities
The Bicycle and Pedestrian Action Plan states that bicycle lanes and striped bicycle lanes will be implemented according to the Town’s adopted bicycle facilities policy. Before this can be done, the Action Plan recommends that the Town make an assessment of each existing arterial and collector street in order to determine whether wide outside lanes or bicycle lanes would be appropriate.
During 2004-2005, we are investigating sources of funds to undertake a study that would help to determine appropriate facilities and to determine operating performance measures, including bicycle compatibility and performance of roadways. The Town could also apply for State Transportation Direct Allocation funds to undertake this study. We anticipate that in future years bicycle facilities on Town maintained streets would be funded from Bond funds allocated for neighborhood traffic calming and pedestrian and bicycle safety improvements or on State maintained streets from State funding sources.
Small Area Studies
The Bicycle and Pedestrian Action Plan identifies 4 major intersections located on State maintained streets where the design and layout of the intersections are perceived as barriers to bicyclists and pedestrians with origins and destinations on either side them. Pedestrians and slower moving cyclists can be in conflict with vehicles trying to change lanes and make turning movements. Cloverleaf intersection designs are particularly difficult for cyclists to use. The Action Plan identifies improvements that may include alternative facilities to get users safely through or around these locations.
During 2004-2005, we recommend that the Town contact the North Carolina Department of Transportation (NCDOT) about undertaking studies to identify improved facilities for bicyclists and pedestrians at the intersection identified in the Action Plan:
We anticipate that in future years these facilities would be funded by the State through matched funding, enhancement programs or the State Transportation Improvement Program.
On December 6, we will return to Council with a recommendation for a Sidewalk and Bicycle Facilities Construction Plan for 2004-2005.
RECOMMENDATION
We recommend the Council adopt the attached resolution referring the preliminary Construction Plan and citizen comments to the Town Manager, and to the Chapel Hill Active Living by Design Partnership Advisory Board, the Bicycle and Pedestrian Advisory Board, the Historic District Commission, and the Transportation Board.
1. Memorandum of September 8, 2003, for 2003-2004 Annual Construction Plan (p. 14).
2. Status Update on projects included in the 2003-04 construction plan (p. 20).
3. Bicycle and Pedestrian Action Plan Sidewalk Priority List (p. 21).
4. Sidewalk Ranking System, endorsed by Town Council Sept. 10, 2001 (p. 24).
5. Town Maintained Sidewalks Priority List (p. 25).
6. State Maintained Sidewalks Priority List (p. 27).
MAPS
1. Map 1. Preliminary Sidewalk Construction List for Town Maintained Streets (p. 29).
2. Map 2. Preliminary Sidewalk Construction List for State Maintained Streets (p. 30).
A RESOLUTION REFERRING A PRELIMINARY 2004-2005 SIDEWALKS AND BICYCLE FACILITIES CONSTRUCTION PLAN TO ADVISORY BOARDS AND COMMISSIONS FOR COMMENT (2004-11-08/R-1)
WHEREAS, on November 8, 2004, the Council of the Town of Chapel Hill held a public forum on a preliminary 2004-2005 Sidewalks and Bicycle Facilities Construction Plan;
NOW, THEREFORE, BE IT RESOLVED by the Council of the Town of Chapel Hill, that the Council refers the preliminary 2004-2005 Sidewalks and Bicycle Facilities Construction Plan to the Chapel Hill Active Living by Design Partnership Advisory Board, the Bicycle and Pedestrian Advisory Board, the Historic District Commission, and the Transportation Board for comment, and to the Town Manager for a follow-up report to the Council at its December 6 meeting.
This the 8th day of November, 2004.