North Macadam Transportation Development Strategy Summary of Past Studies DRAFT

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1 North Macadam Transportation Development Strategy Summary of Past Studies DRAFT Several previous studies were reviewed to gain an understanding and document the recent transportation issues in the North Macadam District. The studies that were reviewed include: North Macadam District Street Design Standards and Criteria Plan Transportation Report, 1998 (DEA/Lloyd Lindley) and Executive Summary, 1999 North Macadam Transit and Parking Strategies, 2000 (PDOT) South Portland Circulation Study, 2001 (PDOT) South Waterfront District Street Plan, Criteria and Standards, 2003 (PDOT) South Waterfront District Transportation Improvements Evaluation, 2004 (KIA) Portland Aerial Tram, Final Recommendation and Report, 2004 (PDOT) Harbor/Naito Concept Plan, 2004 (PDC) Prometheus Subdivision Traffic Analysis, 2005 (KIA) South Portal Study, 2006 (KIA) Additional studies in the North Macadam District that are ongoing, but were not reviewed as part of this document include: SW Kelly Area Redevelopment Study ODOT I-405 Loop Study Central City Transportation Management Plan Update Lake Oswego Transit Alternatives Analysis South Corridor (Phase 2) Portland - Milwaukie LRT South Waterfront TSDC Overlay Study Traffic Analysis for I-5 at North Macadam OHSU Senior Housing Traffic Analysis The following sections summarize the studies and identify transportation assumptions and key findings and recommendations for each of the studies that were reviewed. North Macadam District Street Design Standards and Criteria Plan: Transportation Report and Executive Summary City of Portland (Lloyd Lindley and David Evans and Associates), February 1999 The North Macadam District Transportation Analysis summarizes the analysis conducted on the development expectations of 1,500-3,100 households and 10,000 jobs within the North Macadam District. The district is limited by the freeway and the Willamette River and has only three major transportation access points including: Bancroft Street/Macadam Avenue/Hood Avenue Curry Street/Gibbs Street Moody Avenue/Harbor Drive The analysis included three future scenarios: future year 2003 (5-year horizon), future year 2015 (Metro transportation model) and a development and transportation capacity study. The following list includes key findings identified under each of the analysis scenarios: North Macadam Transportation Development Strategy 1 DRAFT

2 2003-Near Term Improvements Improvements to the Bancroft Street/Macadam Avenue intersection Improvements to manage increased I-5 off ramp and northbound Macadam Avenue weave conflicts Moving the Gibbs Street portal to Curry Street and signalizing the intersection 2015 Model Analysis Reconfigure the Bancroft Street/Macadam Avenue intersection to include a 200 foot long southbound merge lane on Macadam Avenue and a 1,200 foot long divided roadway on Hood Avenue to separate southbound and northbound Macadam Avenue traffic. Traffic signal and signage improvements would be included in the project Install a new traffic signal at Curry Street and add a new divided lane to Macadam Avenue from the I-5 off ramp landing to the Curry Street intersection Other Conclusions With the identified transportation mitigation improvements, the target densities of households and employment can be achieved The estimated cost of the identified mitigations was approximately one million dollars Signal warrants were met at the Bancroft Street/Macadam Avenue, Hood Avenue/Macadam Avenue, and Curry Street/Macadam Avenue. The transportation analysis for 2015 included minimal Transportation Demand Management (TDM) assumptions (transit service and parking restrictions) The transportation system, with the proposed improvements will meet regional standards for target growth. This means, however, a two-hour PM peak with severe congestion. Further TDM measures will be required to meet the expected growth in the district (e.g. alternative modes, parking management, and other trip reductions). North Macadam Transit and Parking Strategies City of Portland, June 2000 The North Macadam Transit and Parking Strategies report summarizes the analysis and development of parking and transit strategies for the North Macadam District aimed at maximizing the development of the district, minimizing traffic congestion and promoting livability. The analysis was based on the assumption that the district could accommodate 8,500-10,000 jobs and 1,500-3,000 housing units. The relationship between travel demand and transit and parking was analyzed using the 2020 Strategic Network Metro Travel Demand Model. This report summarizes the technical analysis that was conducted and outlines the key findings and recommendations related to transit, parking and mode split. Transit Strategies The transit service plan includes the following recommendations: Implement Macadam Avenue Regional Rapid Bus service (currently the #35 route), linking North Macadam with Lake Oswego and West Linn to downtown Portland as soon as SW Bond Street is improved North Macadam Transportation Development Strategy 2 DRAFT

3 Re-route the #40-Tacoma to link North Macadam with Milwaukie and Clackamas County Implement the Central City Streetcar to provide link from North Macadam with Portland State University, the west end area, River District, and Northwest Portland Add a future bus connection between Southeast Portland-North Macadam-Lloyd District to provide for direct connections between the southeast Portland area and to the Lloyd District and Central Eastside Add a future bus connection from Downtown to North Macadam to provide a connection from the eastern edge of downtown Portland and River District area; and Preserve future high capacity rail option for the Jefferson Street Line It is recommended that additional Southwest bus connections be provided to North Macadam. Transportation Planning proposes TriMet consider routing two southwest Portland bus lines to directly serve North Macadam. Also, that the aerial tram proposal between North Macadam and Marquam Hill explore the feasibility of a transfer connection to buses on Barbur Boulevard Implement the transit hub in the North Macadam area and transit preferential improvements at key intersections including Macadam Avenue/Bancroft Street. Create partnerships with Tri-Met, North Macadam businesses and property owners to develop a Transportation Management Association (TMA) Develop a partnership plan for supporting the use of alternative transportation modes, including an adopted service plan, transit pass programs, and parking management plan Parking Strategies The long term target for parking ratios for workers is recommended at 2.0 per 1,000 square foot of land use. Alternatives to this option include the following: 1) Two parking sectors: o 2.0 between Marquam Bridge-Ross Island o 2.5 between Ross Island to South Hamilton o with an increased housing target to 3,000 units 2) Parking ratio of 2.5 with a housing target of 5,000 units If high ratios are recommended then development agreements are needed to insure that high housing targets are met. North Macadam Mode Split Goal Increase The existing Central City Transportation Management Plan (CCTMP) contains a 20% transit mode split and a 10% walk/bike mode split for the North Macadam district work trips. Based on the analysis completed in this report, it is recommended that the North Macadam Framework Plan and the Central City Plan include a 30% mode split goal and the 10% walk/bike goal for work trips. South Portland Circulation Study City of Portland, June 2001 The South Portland Circulation Study provides a long-term vision to guide transportation improvements that will reconnect the Corbettt Terwilliger Lair Hill neighborhood (now renamed South Portland Neighborhood Association) and surrounding area. The primary objective of the North Macadam Transportation Development Strategy 3 DRAFT

4 plan is to separate regional from local traffic within the study area by removing the Ross Island Bridgehead ramps, streamlining the connections to I-5 and I-405 freeways, and changing the character of SW Naito Parkway to fit better with the surrounding neighborhoods. The plan identified five alternatives. Through the public involvement process, three alternatives were carried forward for further study including: Naito Parkway as an Urban Arterial Street (5-lane street with on-street parking) Naito Parkway as a limited Access Boulevard (4-lane boulevard with no on-street parking) Naito Parkway as a Local Street (2-lane street with on-street parking) Each alternative was evaluated based on a set of criteria measures that comply with adopted state and local policies and plans. The study concluded that the alternative that designated Naito Parkway as a Local Street attained the study objects for traffic operations, access, and circulation better than the other alternatives and made the following recommendations: Consolidation of all Ross Island Bridge ramps west of Kelly Avenue Changing the character of Naito Parkway from a four-lane, limited-access expressway design to a two-lane neighborhood collector/main street with east-west cross-street intersections, pedestrian/transit improvements, bike lanes and street trees Reconfiguration of the Naito Parkway/Kelly Way intersection from grade-separated to atgrade Construction of pedestrian bridges over Hood Avenue, I-5 and Macadam Avenue at Gibbs Street and Gaines Street Development of potential critical regional connections that could reduce impacts on local streets and may warrant further study including: o Macadam Avenue to Ross Island Bridge o Ross Island Bridge to Harbor Drive o Ross Island Bridge to I-405 west o I-5/Marquam Bridge Ramp to Kelly Way/Ross Island Bridge o I-5/Harbor Drive to Kelly Way/Ross Island Bridge South Waterfront District-Street Plan, Criteria and Standards City of Portland, Adopted October 2003 The South Waterfront District-Street Plan, Criteria and Standards is the most recent completed version of the South Waterfront street plan and includes amendments to the North Macadam District Street Plan (1996). Another update is anticipated in This document provides the amended design criteria and standard details for the district s public right-of-way and establishes the design and layout of the new internal street network within the South Waterfront district. The boundaries are the Willamette River to the east, Hamilton Court to the south, Interstate 5 on the west and the Marquam Bridge to the north. The district contains approximately 140 acres of land with just over one mile of river frontage. The analysis conducted for the 1998 North Macadam District Street Design Standards and Criteria Plan: Transportation Report (summarized later in the report) included the three district portal intersections, River Parkway/Harbor Drive, Curry Street/Macadam Avenue and Macadam Avenue/Bancroft Street. The analysis was based on a 20-year accommodation of 10,000 jobs and North Macadam Transportation Development Strategy 4 DRAFT

5 3,000 housing units with a 30% mode split. Key conclusions that were identified and are still valid based on the current anticipated growth assumptions include: Bancroft Street and Macadam Avenue portal improvements would accommodate traffic growth and transit access for 10,000 new jobs and 3,000 housing units at acceptable levels of service Moving the central portal from Gibbs Street to Curry Street and improving the Macadam Avenue/Curry Street intersection would better accommodate traffic operation, growth and access from I-5 to the district As the district s growth nears 10,000 jobs and 3,000 housing units, portal access will degrade and would function at a marginally acceptable level River Parkway and Harbor Drive would operate at acceptable levels although backups on I-5 and Naito Parkway could interfere with operations on a more recurring basis in the future The South Waterfront District Street Plan, Criteria and Standards provides a balanced transportation system that utilizes two primary multi-modal streets for north and south travel and extends the existing grid from the west, eastward to the River. Several street plan principles (e.g. land use, block size, portals of access, and green infrastructure) were established as well as street standard design principles (e.g. streets, connectivity, sidewalks, street trees and street lighting) to contribute to the creation of street standards that are specific to the South Waterfront Plan. The list of street plan principles and standard design principles is extensive and incorporates many different elements. The key components of the street plan are outlined below: The north/south streets, Bond Avenue, Moody Avenue and River Parkway accommodate transit, pedestrian, bike, and district through access. East/west streets are comprised of local and enhanced pedestrian streets that are regularly spaced and provide convenient access from north/south streets to businesses and residences. Local streets provide access to parking facilities, on-street loading and parking and local circulation. Special portal features Bancroft Street, Curry Street and River Parkway are encouraged South of Ross Island Bridge, a one-way couplet on Moody Avenue and Bond Avenue will provide the primary north/south access through the district (two-way operation will be retained until street improvements allow for proper connectivity of the couplet) Gaines Street and Meade Street are identified as enhanced pedestrian streets and green streets Special design areas provide opportunities to create distinct character and innovative solutions in the district; four have been identified (two on River Parkway, one on Gibbs Street from Macadam Avenue to the river and one on Pennoyer Street) The street classification and function table for the key roadways within the district as identified in the plan are attached in the Appendix of this summary. South Waterfront District Transportation Improvements Evaluation Kittelson & Associates, May 2004 The South Waterfront District Transportation Improvements Evaluation identifies improvements to Macadam Avenue (State Highway 43) between the Bancroft Street intersection and the I-5 on- North Macadam Transportation Development Strategy 5 DRAFT

6 ramp that are necessary to help facilitate buildout of the South Waterfront Central District. The Central district is approximately 30-acres and is envisioned to comprise 2 million square feet of office and retail along with 2,700 housing units. Ten improvement alternatives were analyzed based on geometrics, traffic operations, and planning level cost estimates. The recommended preferred alternative for the intersection includes the following elements: Shift Macadam Avenue west of the existing alignment to a newly constructed roadway Braiding the I-5 northbound off-ramp so that it passes over the realigned Macadam Avenue and touches down on the east side of the new alignment Access into the District from I-5 northbound would be provided at Curry Street Access into the District from Macadam Avenue and Hood Avenue and access out of the District to I-5 northbound would be accommodated via the Bancroft Street intersection Key assumptions were identified as critical components of the successful implementation of the recommended alternative including: Improve Bond Avenue and Moody Avenue between Bancroft Street and Curry Street (funding is committed in the South Waterfront Central District Project Development Agreement) Construction of Interim Safety and Capacity Improvements (scheduled to be complete by the end of 2005) o Construction of a temporary median between the existing I-5 off-ramp and Macadam Avenue to the Curry Street intersection o Installation of traffic signals at Macadam Avenue/Curry Street and Macadam Avenue/Moody Avenue o Conversion of Curry Street to one-way eastbound and Gaines Street to one-way westbound between Macadam Avenue and Moody Avenue o Slight widening into the embankment on the west side of Macadam Avenue to accommodate two northbound receiving lanes off of the I-5 off ramp and two northbound travel lanes on Macadam Avenue up to the Curry Street intersection Further the analysis and development of additional street connectivity south of Bancroft Street Perform a detailed operations and geometric analysis at the Macadam Avenue/Bancroft Street/Hood Avenue intersection to determine potential long-term mitigation strategies Portland Aerial Tram-Final Recommendations and Report City of Portland, June 2004 The Portland Aerial Tram has been identified as a critical element of the South Waterfront District revitalization. The Portland Aerial Tram-Final Recommendations and Report summarizes the concepts developed for the construction of the Aerial Tram and outlines a vision for the surrounding community design. One key component of the community design includes the implementation of the South Portland Circulation Study Phasing Strategy (South Portland Circulation Study, adopted 2001) for the identified improvements. This report recommended the primary focus of improvements (Phase 1) should be the reconfiguration of access to and from the Ross Island Bridge. To proceed with this recommendation, the following improvement projects were identified based on initial roadway design and traffic operations analyses: North Macadam Transportation Development Strategy 6

7 Widening of Kelly Way to serve as the exclusive connection to and from Ross Island Bridge. This includes a new signalized connection with the Macadam Avenue ramp and potentially a new ramp from Kelly Way to southbound Hood Avenue Establishment of connections from Arthur to Naito Parkway southbound, and Naito Parkway northbound to Kelly Way eastbound. Closure of all existing Ross Island Bridge ramps Restripe existing Naito to a single lane each direction in order to begin the transition of Naito back to a neighborhood collector Improved pedestrian crossing improvements along Naito Parkway Potential construction of the Hood Braid which would help eliminate weaving conflicts between Hood Avenue, Kelly Way, and I-5 traffic just south of the Ross Island Bridge As part of the Phase 1 plan, the following traffic improvements are required: Provision of a slip ramp from northbound Naito Parkway viaduct to eastbound Kelly Way Reconfiguration of existing ramp from eastbound Arthur to the Ross Island Bridge approach ramps to provide a connection to Southbound Naito Parkway for eastbound Arthur traffic o Signalization of 1 st Avenue/Sheridan Street o Reconfiguration of the 1 st Avenue/Arthur Street intersection o Reconfigure First Avenue to one way south between Arthur Street and Meade Street Installation of a new intersection on Naito Parkway to replace the Corbett Avenue to 1 st Avenue northbound neighborhood traffic and bus egress route Reconfiguration of northbound Barbur Boulevard right turn to northbound Naito Additional projects identified in this report impacting the South Waterfront Area include: SW Gibbs Street Improvements Willamette River Greenway South Waterfront Access Improvements o Macadam Avenue Interim Improvements (to be completed by 2005) o Macadam Avenue Long Term Improvement New I-5 off-ramp that will bring I-5 traffic down on the east side of Macadam Avenue rather than the west side The community projects that were identified were classified into a three-tier system to indicate general priorities. The projects related to the South Waterfront component of the community development projects for each of the three tiers include: Tier 1 South Waterfront Transit Connections Study I-405 Loop Study Regional Recommendations South Portland Circulation Project Phase 1-Rebuild Kelly Way to connect Ross Island Bridge to SW Arthur and decommission existing Ross Island Bridge/Naito Parkway ramps Naito Boulevard Interim Traffic Calming and Crossing Improvements North Macadam Transportation Development Strategy 7

8 Naito Parkway/Gibbs Street Crossing Improvements Gibbs Street Pedestrian Bridge Connection South Waterfront Access Interim Improvements on SW Curry Street Tier 2 Construct local street network on Ross Island Bridge ramps Construct braid ramp between Kelly Way and Hood Avenue Construct long term South waterfront access improvements on Macadam Avenue Tier 3 Full reconstruction of Naito Parkway Improve crossing at Barbur Boulevard and Naito Parkway Construct crossing improvements at Bancroft Street and Barbur Boulevard Hamilton Street Pedestrian Bridge Ross Island Bridge Pedestrian Connection Harbor/Naito Concept Plan Portland Development Commission, June 2004 The Harbor/Naito Concept plan identifies alternative redevelopment opportunities and circulation patterns for four major land holdings along Naito Parkway and Harbor Drive. The concept plan includes land use and circulation improvements specific to the parcels of land that are currently owned by the City, State and International School and develops a framework to improve bicycle, pedestrian, transit and parking facilities. The primary objectives related to circulation within the study area are to: Develop a circulation plan that accommodates the streetcar and extends the city s street pedestrian and bike network into the study area between downtown and River Place Identify design opportunities and constraints created by the possible extension of light rail along Lincoln Street and River Place The concept plan includes a circulation framework that identifies concepts to address multimodal components and public agency initiated infrastructure improvements that are critical to maximize development parcel value and developer interest while improving district access and neighborhood livability. The projects that were identified include: Naito Parkway Enhanced Street Improvements (e.g. sidewalks, parking, crosswalks) Water Street Extension (Sherman Street to Harrison Street) Sherman Street Extension Harbor Way Extension for parking and bike/pedestrian facilities (in the Willamette Trolley ROW) Montgomery, Lincoln and Grant Steps (pedestrian improvement) Pedestrian Bridge over Harbor Drive from the Harrison streetcar stop to SW Montgomery Street Pedestrian connection from SW 1 st Avenue across Naito Parkway to SW Sherman Street Locally preferred alternative light rail plans (SW Lincoln Avenue elevated track way from Naito Parkway to River Parkway Station North Macadam Transportation Development Strategy 8

9 Prometheus Development in the South Waterfront District Kittelson & Associates, June 2005 Prometheus Real Estate submitted a proposal to subdivide seven acres in the South Waterfront District that could enable approximately 900 condominiums. The proposed development will occur in conjunction and just south of the 30-acre central district development between Gaines Street and Lowell Street. A traffic impact analysis study was conducted that analyzed the following intersections: SW River Parkway/SW Abernethy Street SW Bond Avenue/SW Abernethy Street SW Bond Avenue/SW Lowell Street SW Bond Avenue/SW Bancroft Street As part of the analysis it is assumed that half and full street improvements will be constructed within the boundaries of the project to the widths and characteristics specified in the South Waterfront District Plan, Criteria and Standards, Operations were analyzed for the AM and PM peak hours. The report concluded that the proposed Prometheus development can be developed while maintaining acceptable operations on the surrounding transportation system. No mitigations were required or identified, although it is anticipated that Prometheus may participate in local improvement districts to assist in the financing of district-wide transportation improvements. The Prometheus Development has undergone land use review; the conditions for approval include the following transportation mitigation measures needed to serve the project and contribute a proportional share toward the following district-wide improvements described below: Construction of street improvements and green accessways within and abutting the applicant s property; Construction of an interim greenway trail improvement; Fund the design and construction of traffic signals at the intersections of SW Curry Street/SW Bond Avenue and SW Gaines Street/SW Bond Avenue located north of the site ($500,000); Participation in both the Portland Aerial Tram and Portland Streetcar Local Improvement Districts (currently assessed at $853,296); Participate financially towards a District Transportation Impact and Mitigation Analysis (TIMA) ($25,000); and Provision of a waiver or remonstrance towards future transportation local improvement districts to fund district-wide improvements (capped at approximately $4,361,814). South Waterfront South Portal (DRAFT) Kittelson & Associates, September 2006 The South Waterfront District comprises a 130-acre sub-area of Portland s Central City District that is planned for significant redevelopment over the next decade. The area is planned to support a minimum of 3,000 new housing units and up to 10,000 jobs in a diverse, transit North Macadam Transportation Development Strategy 9

10 oriented environment. The southernmost portal, located at Macadam Avenue/Bancroft Street is expected to accommodate the highest traffic volumes of the three portals. The purpose of this study is to evaluate design alternatives and identify a preferred concept design that best facilitates future traffic demands and addresses existing geometric and safety deficiencies at the intersection of Bancroft Street/ Macadam Avenue. The analysis of the existing capacity and geometric constraints at Bancroft Street/ Macadam Avenue result in safety concerns and limit the amount of district vitality since the intersection serves as one of the only three portals into the district. Six alternatives were developed and evaluated with the assistance of a project working group made of the adjacent property owners and staff representatives from various agencies. The alternatives included: Alternative #1-Rerouting of westbound left-turns Alternative #2-Rerouting of westbound left-turns and extension of Bond Avenue Alternative #3-Separation of left-turns, throughs, and rights Alternative #4-U-turn on Macadam Avenue and extension of Bond Avenue (couplet) Alternative #5-New Interstate-5 Underpass Alternative #6-Westbound left-turns at Hamilton Street/Court Avenue signal Stakeholders and City staff recommended alternative 4A to be carried forward to be constructed in two phases. The recommended alternative included the following components: Phase 1 (cost estimate: $32 million dollars) o Full build of the Macadam Avenue improvement, o Full build of the new South Portal entrance road between Macadam Avenue and Moody Avenue, and o A modified Moody extension utilizing only the right-of-way need for the alternative (two travel lanes in each direction, bike lanes and a sidewalk on only one side). Moody Avenue will operate as a two-way facility as part of Phase 1 Phase 2 (cost estimate: $18.5 million dollars) o Extension of Bond Avenue to align with the South Portal entrance off Macadam Avenue o Conversion of Bond Avenue and Moody Avenue to one-way streets south of Bancroft Street The recommended alternative should be incorporated into the South Waterfront District Street Plan, Criteria and Standards through an amendment of the district plan map. Phase 2 (the Bond Avenue extension) will be shown as a dashed line on the plan to reflect the uncertainty of rightof-way acquisition and timing of construction. North Macadam Transportation Development Strategy 10

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