MINUTES OF A WORK SESSION HELD BY THE MAYOR AND COUNCIL OF THE

        TOWN OF CHAPEL HILL, TUESDAY, FEBRUARY 27, 1990

 

Mayor Howes called the work session to order, noting that Council Member Wilkerson would be arriving in a few minutes.

 

Council Members Julie Andresen, Joyce Brown, Joe Herzenberg, Nan­cy Preston, Alan Rimer and Arthur Werner were in attendance. Council Member James C. Wallace was absent.

 

Also in attendance were Assistant to the Mayor Lisa Price, Inter­im Town Manager Sonna Loewenthal, Assistant Town Manager Florentine Miller, Public Safety Director Cal Horton, Planning Director Roger Waldon, Town Engineer George Small, and Town At­torney Ralph Karpinos.

 

Mayor Howes stated that this evening's work session would focus on transportation improvements.

 

Ms. Loewenthal stated that the planning of a good roadway network takes many years to achieve. Ms. Loewenthal said that the eve­ning's discussion would focus on two areas: the review of cur­rent roadway planning processes and specific attention to five specific roadway projects.

 

Ms. Loewenthal noted that the North Carolina Department of Trans­portation presently had funding in place for the redesign of south Columbia Street. Ms. Loewenthal indicated that the staff was seeking guidance for possible design alternatives for this roadway. Ms. Loewenthal added that preliminary design work on Highway 86 north was underway.

 

Ms. Loewenthal added that she was requesting Council comments concerning the Estes/Franklin intersection, a pilot entranceways beautification project, and the possible retrofitting of Airport Road with a landscaped median.

 

Town Engineer George Small presented a brief overview of the cur­rent roadway planning process. Mr. Small noted that mass tran­sit, ride‑sharing, walking and bicycling were alternatives to the construction of roadways. Mr. Small also stressed the importance of involving citizens and the Council early in the planning pro­cess.

 

Mr. Small noted that the Council would be asked to comment on five specific roadway‑related projects this evening. Mr. Small said that aerial photographs of the roadways and appropriate re­source persons were available to answer questions by the Council.

 

Council Member Andresen inquired how the Department of Transpor­tation public hearing would fit into the proposed roadway planning process. Mr. Small explained the overall process, not­ing that the Department of Transportation holds public meetings and hearings, with the latter serving as a formally recorded meeting. Mr. Small said that the public meeting allows interest­ed parties to receive information informally early in the plan­ning process. Mr. Small added that the public hearing is a good way to get firm direction in a timely manner.

 

Mayor Howes expressed the importance of the Department of Trans­portation role as a partner with the Town in transportation ac­tivity including mass transit, provision of park and ride facili­ties, and roadway planning and building. Mayor Howes noted that at its inception, the Department of Transportation was a highway building agency. Mayor Howes observed that the department has greatly broadened its interest over the years.

 

Mayor Howes noted that policy for the Department of Transporta­tion is made by the State General Assembly and appointed offi­cials of the agency, who serve at the pleasure of the Governor. Mayor Howes concluded his remarks by stressing the need for con­tinued partnership between the Town and North Carolina Department of Transportation on the planning of roadway projects.

 

Mr. Small noted that the staff would be bringing a proposed transportation improvement program, including a park and ride facility, in the near future.

 

Council Member Werner noted that at one time many of the project priorities on the transportation improvements program went unful­filled. Council Member Werner stressed the importance of atten­tion to individual projects because funding was becoming avail­able for the construction of some of these projects.

 

Council Member Brown stressed the need to widen priorities for transportation improvement planning to include park and ride lots, mass transportation and ride‑sharing. Mr. Small noted that the Department of Transportation program is limited to roadway and parking projects. Ms. Loewenthal observed that bikeways are also included in the program. Ms. Loewenthal noted that mass transit alternatives are within the scope of a separate program.

 

Council Member Andresen stated that she had recently attended a meeting of the North Carolina League of Municipalities Transpor­tation Committee. Based on comments at that meeting, she said it appeared that other communities were also interested in develop­ing alternative transportation programs.

 

Mayor Howes stressed the need to find out the context of the transportation improvement program. Council Member Werner sug­gested that if mass transportation is funded separately from roadway projects, the Council should set its roadway priorities accordingly.

 

Mayor Howes noted that a legislative study committee was in the process of examining State funding for mass transportation pro­gram.

 

Mr. Small said that Town staff would involve the Council and Town residents early in the roadway planning process. Council Member Werner inquired about overlap with the Department of Transporta­tion's schedule. Mr. Small noted the importance of keeping pro­spective developers informed of planned roadway improvements as early as possible. Mr. Small added that by doing better planning and investigation up front, there would be a greater likelihood for concurrence by Department of Transportation staff. Council Member Preston expressed her vigorous concurrence with getting the public involved in the planning process as early as possible.

 

Council Member Brown inquired how transportation problems as a whole, rather than just roadway planning, could be included in the planning process. Mr. Small noted that this evening's work session would principally focus on planned roadway improvements. Mr. Small added that the proposed transportation improvement pro­gram would include a comprehensive bikeways program.

 

Council Member Brown asked whether it would be possible to exam­ine transportation problems from a broader perspective than building roadways. Council Member Werner said it was possible to run computer models and break these into component parts such as sidewalks, mass transit and roadways. Council Member Rimer stat­ed that the Planning and Transportation Boards had recently exam­ined transportation options including modelling and transit fund­ing in great detail. Council Member Rimer stated that alterna­tives such as ride‑sharing, buses and bikeways were important, there was still a need to make roadway improvements Council Member Brown expressed concern that there was no evidence of ride‑sharing programs in the Town. Mayor Howes said that the Town and University were cooperating with the Triangle J ride‑sharing program.

 

Council Member Werner suggested that the Council examine the pri­ority list for roadway projects this evening.

 

Mayor Howes stated that the proposed style for roadway widening, such as South Columbia Street, was very important.

 

Council Member Preston inquired about the process for inclusion of projects on the priority list. Mr. Small said that the Coun­cil determined the scope of the"list following suggestions from the staff, citizens and other members of the Council.

 

Council Member Andresen inquired whether it was realistic to hope that the Department of Transportation would fund a roadway other than a five‑lane section. Ms. Loewenthal expressed the need for the Council to enunciate general terms for future Department of Transportation roadway projects. Mayor Howes said that a lot of time was being wasted if the Department of Transportation would not agree to build roadways other than five‑lane cross‑sections. Mayor Howes said he thought‑ a compromise could be achieved in this regard.

 

Mayor Howes observed that the Department of Transportation is adjusting to the fact that other communities are changing roadway design priorities. Mr. Small added that the Department was in the process of internal change about the design of roadways.

 

Ms. Loewenthal said she would be presenting the proposed 1990‑1991 Transportation Improvement Program to the Council in the near future. She noted that some of the projects could be included in the proposed Capital Improvement Program.

 

Council Member Preston expressed concern that portions of South Columbia Street are dangerous, with areas next to the roadway washed out. Council Member Preston stressed the need for mainte­nance to address this situation. Council Member Preston stated that based on recent journeys along South Columbia Street, a three‑lane road with a center turn lane is needed.

 

Council Member Andresen suggested that the Town engineering staff evaluate difficult intersections along South Columbia Street. Council Member Andresen said various things could be done to im­prove the safety of the roadway. Council Member Brown said she had only seen one bicyclist on South Columbia Street during a recent visit. Council Member Brown stated that some improvements for bicycles and pedestrians were needed to make the area safer.

 

Council Member Herzenberg said he concurred with Council Member Preston's observation concerning the need for repair of the gully along South Columbia Street. Council Member Herzenberg added that during times other than rush hour, a lot of speeding occurs along southbound South Columbia Street. Council Member Herzenberg said he was unconvinced that improvements other than routine maintenance were necessary.

 

Mayor Howes inquired about traffic counts along South Columbia street. Mr. Small responded that recent traffic counts varied between 13,000 and 16,000 vehicles per day. Mayor Howes inquired how this compared to the intersection of Franklin and Estes. Mr. Small said traffic counts in this area are between 18,000 and 22,000 trips per day. Council Member Werner requested compara­tive figures for the Airport Road/Estes Drive intersection. Mr. Small indicated that counts in this area varied from 11,000 to 17,000 trips per day. He noted that two lane roadways carrying more than 10,000 were over their recommended capacity.

 

Council Member Andresen inquired about the impact of planned Uni­versity buildings on South Columbia Street. Mr. Small said he anticipated that peaks would likely be spread out over the day. Council Member Werner noted that building expansions at the hos­pital would generate an increase in the number of patients and visitors to the facility. Council Member Werner observed that roadways are customarily designed to accommodate peak hour condi­tions. Council Member Werner inquired whether vehicles trips would actually be spread over the day or occur at peak hours. Mr. Small stated that increases would be likely to occur at sev­eral intervals. Mayor Howes observed that it would be necessary to retrofit a modern roadway facility into an established area. Mayor Howes stated that such a project would be disruptive re­gardless of its scope.

 

Council Member Andresen requested that Mr. Small depict the Uni­versity's contemplated south loop roadway. Mr. Small did so.

 

Council Member Rimer noted that NC 86 north between Interstate 40 and Homestead Road handles approximately 17,000 vehicles per day. Council Member Rimer stated that improvements to this two‑lane roadway are needed as soon as possible. Council Member Rimer inquired whether the Council thought improvements were needed to ‑ South Columbia Street. Council Member Rimer also asked whether any federal funding was involved in possible improvements to South Columbia Street. Mr. Small said that no federal funding was involved for South Columbia Street.

 

Council Member Andresen noted that the traffic tie‑ups on South Columbia Street tend to occur at the bridge aver U.S. 15‑501. Mr. Small concurred that bottlenecks happened in this area. May­or Howes inquired whether there would be a cloverleaf at this intersection. Mr. Small said there would not be a cloverleaf.

 

Council Member Werner stated that traffic congestion is most likely to occur at or near intersections. Council Member Werner added that there were not many turning movements on the stretch of South Columbia Street under consideration. Mr. Small stated that the inclusion of turn lanes would aid turning maneuvers. Council Member Werner inquired whether it would be possible to prohibit left turns in the Westwood area. Mr. Small suggested that an incremental approach should be adopted. Mr. Small added that bike lanes should also be considered. Council Member Werner observed that a turn lane would be unnecessary if turning move­ments were prohibited. Mr. Small stated that the prohibition of turning movements does not seem to work unless such movements are physically deterred.

 

Council Member Brown expressed concern that the linkage of NC 86 and South Columbia Street could create a potential thruway through the Town. Council Member Preston stressed the need to provide adequate roadway passage and assure the safety of citi­zens at the same time. Council Member Rimer suggested that the Town could possibly examine a third lane for South Columbia street as well as make adequate provisions for pedestrians and bicyclists. Council Member Rimer added that he was not convinced that $1.4 million was justified to expand the roadway from two lanes to five lanes.

 

Council Member Brown inquired about the possible installation of bikeways and sidewalks on side roads rather than main thorough­fares. Mr. Small responded that this could conceivably be accom­plished in some areas. Mr. Small noted that the South Columbia street area would not be amenable to such an arrangement. Mr. Small added that it would be possible to construct a three lane roadway with bicycle lanes as an alternative. Council Member Andresen added that a pedestrian pathway should also be included. Mr. Small said that if curb and guttering were not installed, it would be difficult to install a sidewalk. Council Member Andresen inquired whether it would be possible to install a path­way in an area not contiguous to the roadway. Mayor Howes ob­served that this would be a tight squeeze in the lower portion of this area. Mr. Small stated that it would be advantageous to install curb and gutter in the area, to assist with the installa­tion of sidewalks in the future.

 

Council Member Wilkerson inquired about the potential impact of installing curb and gutter in an incremental manner. Mr. Small stated that the offset design for more lanes could impact how the road would be crowned. Council Member Preston inquired about the need for bus pull‑offs. ?r. Small said that the staff could ex­amine the cost of installing bus pull‑offs. He noted that driv­ers might elect to pull around buses by moving into the center lane.

 

Mr. Small noted that NC 86 is currently composed of five lanes to Homestead Road. Mayor Howes inquired about the length of NC 86 between Homestead and Weaver Dairy Road. Mr. Small said approxi­mately one and a half miles, about twice the length of the South Columbia Street roadway project. Mr. Small noted that the topog­raphy and type of development in the two areas was quite differ­ent.

 

Council Member Preston inquired whether Chapel Hill North would install a median along NC 86. Mr. Small said the median would not fit in this area. He noted that a median was contemplated for the portion south of Weaver Dairy Road.

 

Council Member Preston asked whether a median could be installed if the entrance to Northwood subdivision were relocated. Mr. Small said that the staff had examined many options, but none would have permitted the installation of a median and related landscaping. Mayor Howes suggested possibly closing the inter­section of Eubanks Road and NC 86, routing traffic around to the intersection of Weaver Dairy Road and NC 86. Alternately, Coun­cil Member Werner suggested the possibility of closing the Northwood subdivision entrance on to NC 86. Mayor Howes stressed that Eubanks Road is located too close to the top of the I‑40 ramp. Mayor Howes stated that appropriate separations were need­ed in this area.

 

Council Member Preston said she would like to see the entranceway plan introduced into any improvements made on NC 86. Mayor Howes stated that the NC 86 north and Airport Road retrofitting projects were interrelated. Mayor Howes suggested that Airport Road could be humanized if it had raised medians. Mr. Small stated that a divided highway with a twelve foot median could be built north of Homestead Road. Mayor Howes suggested that if it were possible to install a wider median, this should occur. Mr. Small noted that the principal benefit of a wider median would be the ability to plant substantial trees.

 

Council Member Rimer noted that more sophisticated drainage meth­ods would permit successful retrofitting of a median along Air­port Road. Mr. Small said that the installation of a wider medi­an north of Homestead Road would permit additional landscaping opportunities.

 

Council Member Andresen said she would like to include bicycle lanes on NC 86. Council Member Werner noted that since NC 86 is heavily travelled by bicycles, a four foot bike lane appears to be appropriate. Mr. Small indicated that it would be problematic to stripe anything less than four feet. Mr. Small added that there was sufficient right‑of‑way to accommodate sidewalks and bike lanes on NC 86 north. Mayor Howes noted that since pedes­trian traffic along NC 86 is heavy, there will be a need for curbs and sidewalks. Mr. Small inquired whether the Council wished for the staff to combine the NC 86 north project with the retrofitting of Airport Road. Mayor Howes and several members of the Council responded affirmatively. Mayor Howes inquired when information concerning the project status could be brought back before the Council. Mr. Small said the information would be brought back in the near future.

 

Mr. Small continued his presentation with a brief overview of the Estes Drive/Franklin Street intersection. Mr. Small indicated that intersection improvements to address left turn storage prob­lems had been discussed since 1986. Mr. Small noted that the magnitude of the situation changed significantly with the addition of the proposed library site in the area.  Mr. Small indicated that a divided roadway with a raised median was pro­posed for the section below Burlage Drive. Mr. Small added that the median would present a landscaping opportunity. Council Mem­ber Werner inquired about the width of the proposed median. Mr. Small said the median would be thirty to thirty‑five feet wide, precluding left turns at some points. Council Member Preston inquired about the amount of land being taken from the Collier‑Cobb parcel for proposed intersection improvements. Mr. Small indicated that it would be possible to take less land if one turn lane were included instead of two. Mayor Howes noted that the proposed intersection improvements would allow for con­tinuous right turn movements through the intersection.

 

Mayor Howes expressed concern that the proposed addition of con­tinuous right‑turn lanes would make a difficult intersection even worse for pedestrians in the area. Mayor Howes suggested that traffic signals could be arranged to permit pedestrian crossings. Council Member Preston suggested a pedestrian tunnel, underpass or bridge in the area. Council Member Rimer noted that the addi­tion of pedestrian cycles would prolong the length of the overall traffic light cycle. Mr. Small stated that alternative strate­gies would be examined to handle pedestrian traffic at the inter­section. Mayor Howes suggested that a unified pedestrian cycle would eliminate conflicts with right‑turn movements.

 

Council Member Brown inquired whether bicycle lanes would be in­cluded in the proposed improvements for Franklin Street and Estes Drive. Mr. Small stated that bicycle lanes were not included in initial proposal, although they could possibly be retrofitted in the future.

 

Mayor Howes inquired about the schedule for improvements at Franklin and Estes. Mr. Small indicated that planning and design work would be moving ahead quickly in the coming year. Mayor Howes asked whether cost‑sharing had been contemplated. Mr. Small indicated that such an approach had not been explored. Ms. Loewenthal indicated that completion of the project as outlined by Mr. Small could exhaust remaining 1986 bond monies for roadway construction. Mayor Howes inquired whether the owners of the Texaco station and Collier‑Cobb had been involved in discussions. Mr. Small indicated that preliminary contact had been made with these parties. Mayor Howes indicated that David Spencer felt that major improvements were needed at the intersection. Mr. Small indicated that the staff would work with Collier‑Cobb to address parking and circulation concerns during the roadway im­provements phase.

 

Mr. Small provided a brief explanation of current and future turning movements at the intersection of Franklin Street and Estes Drive. Council Member Preston inquired about the possibility of closing the driveway at the Texaco station. Mr. Small noted that this could only be done with the concurrence of the station's owner. Mayor Howes emphasized the need for inter­section improvements at Franklin and Estes, particularly in light of the proposed new library in the area. Council Member Andresen stated that Council Member Rimer's earlier suggestion that the traffic signal system include a pedestrian‑only cycle was a good one.

 

Council Member Preston inquired about the possibility of using pedestrian bridges at the intersection. Mr. Small indicated that physical restrictions at the intersection would make this impos­sible. Mayor Howes suggested providing a median in the roadway for pedestrians during the crossing of streets. Mayor Howes also requested that the staff investigate inclusion of a pedestrian cycle in the traffic signal scheme for Franklin and Estes. Mr. Small stated that a traffic analysis of the area would be per­formed in the future.

 

Mr. Small noted that the staff was requesting the Council to identify an area of the Town in which to expend $25,000 for entranceway beautification. Mr. Small indicated that the Eastgate/Ephesus Church Road had been previously suggested as the site for the pilot project. Mr. Small indicated that this area would also need some significant drainage improvements in the near future to preserve any landscaping which would be planted. Mr. Small also indicated that the Department of Transportation might also want to use this area as a staging area for the bypass project.

 

Council Member Werner inquired why the Eastgate/Ephesus Church Road site had been selected. Mayor Howes indicated that the area was among those in greatest need of improvement. Mayor Howes added that it seemed unwise to expend the funds at this location if the Department of Transportation chose to stage construction in the area in the near future. Mayor Howes suggested that the area of U.S. 15‑501 between Sunoco and Brendle's could be consid­ered as an alternative site.

 

Council Member Andresen said she was committed to the beautifica­tion of the Eastgate/Ephesus Church Road area, but not at this time, due to the Department of Transportation's possible use of the site as a staging area. Mayor Howes noted that improvements to the bypass were several years away. Mayor Howes inquired whether design work could begin on the Eastgate/Ephesus Church beautification and drainage work. Mr. Small said yes. Ms. Loewenthal suggested that the Council might wish to wait and see what the remainder of the boulevard would look like prior to landscaping and drainage improvements.

 

Council Member Andresen said she strong?y favored the use of uni­form signage in the Eastgate/Ephesus Church Road area. Council Member Werner expressed his preference for initiating a pilot entranceways project near Brendle's. Council Member Rimer re­quested that the staff require Brendle's to maintain berms as required in their original site plan.

 

Ms. Loewenthal noted that design fees for roadway and drainage improvements in the Eastgate/Ephesus Church Road area would cost approximately $25,000. Council Member Preston inquired whether $25,000 was expended for other roads in the area. Mr. Small said this was correct, noting that some cost more. Mr. Small noted that the proposed design of Estes Drive has cost approximately $25,000 to date.

 

Mayor Howes requested that the Town staff contact Brendle's con­cerning their site plan required landscaping improvements.

 

The work session concluded at 10:03 p.m.