TO: FROM - City and Borough of Juneau – Alaska's … · 2002-12-04 · one-way couplet as the preferred engineering solution for relieving pressure on the 10th and Egan ... side

DATE: December 4, 2002

TO: Planning Commission

FROM: Sam S. Kito III, PE, Transportation Development ManagerCommunity Development Department

FILE NO.: CSP2002-00007

PROPOSAL: Reconstruct the 10th and Egan and Douglas Highway and 10th Street intersections andmodify the Douglas Bridge to accommodate increased traffic over the next 20 years.

GENERAL INFORMATION

Applicant: State of Alaska Department of Transportation and Public Facilities, Contact: ChrisMorrow, PE, Preliminary Design & Environmental Group Chief

Property Owners: State of Alaska, Breeze Inn, James D. Becker

Property Address: Douglas Bridge and approach intersections

Legal Description: DOT&PF ROW

Parcel Code No.: 0

Site Size: N/A

Zoning: D-5, D-18, WC, WI

Utilities: Yes

Access: N/A

Existing Land Use: ROW, Commercial, Residential

Surrounding Land Use: North - CommercialSouth - ResidentialEast - Commercial, Public

Planning CommissionFile No.: CSP2002-00007December 4, 2002Page 2 of 7

West - Commercial, Public

BACKGROUND

The State of Alaska Department of Transportation and Public Facilities (DOT/PF) is pursuing City/StateProject approval for the project entitled “10th Street/Egan Drive Intersection Improvements.” Theproposed project includes improvements that will ease current and future congestion at the 10th Street /Egan, and 10th Street/Douglas Highway intersections. The following attachments are included as part ofthis staff report.

? Attachment A – Existing Conditions? Attachment B – Reversible Lane AM? Attachment C – Bridge and Roundabout AM? Attachment D – Reversible Lane PM? Attachment E – 10th and Egan Drive Intersection Detail? Attachment F – Roundabout Detail

This intersection is considered by DOT/PF as one of the busiest intersections in Southeast Alaska. Trafficthrough the intersection is approximately 28,000 vehicles per day. Department of Transportation trafficprojections estimate traffic of 37,000 in the year 2022. The intersection currently experiences congestionand delay during the AM and PM peak periods. This intersection is the only way into and out of DouglasIsland, and is the primary gateway into and out of downtown Juneau.

In June of 2001, DOT/PF completed a major traffic study of the project with a recommendation of a partialone-way couplet as the preferred engineering solution for relieving pressure on the 10th and Eganintersection. That preferred solution received a very negative response from the public, local governmentand project stakeholders. DOT reconsidered possible solutions, taking the couplet off the table. Thepreferred solution presented in this staff report is the result of those deliberations. DOT/PF will retain thecouplet option for possible use in the future if congestion and delay continue to be problems at 10th andEgan.

Existing Conditions – For the purpose of this discussion, and in the draft preliminary engineering report,the Douglas Bridge is assumed to line up in the North-South direction with North being towards Juneau,and South being towards Douglas Island. The existing Egan Drive and 10th Street intersection is a four way,signal controlled intersection with two east and west lanes on Egan Drive, a west bound left turn lane ontothe Douglas Bridge, an east bound right turn lane onto the Douglas Island Bridge, and an east bound leftturn lane onto 10th Street. 10th Street north of the bridge contains one northbound through lane, onesouthbound left-turn and through lane, and a southbound right turn lane onto Egan Drive. The bridgeapproach contains one southbound through lane, one southbound merge lane, one northbound left turn lane,one north bound left turn and through lane, and one right turn lane.


The existing Douglas Highway, North Douglas Highway, Douglas Bridge intersection is a stop controlledintersection with a single through lane in each direction from 10th Street to Douglas Highway. There is aleft turn lane for North Douglas Traffic, and a wye for Douglas Island bound traffic. Traffic approachingthe intersection from the west, can either stop and turn left to travel over the bridge, or turn right towardsDouglas and yield to traffic coming off of the bridge.

Pedestrians facilities include signal-protected crosswalks across all legs of the 10th and Egan intersectionwith the exception of two short crosswalks connecting to refuge islands located on the channel side of EganDrive. There is a pedestrian pathway along the east side of the bridge that ties into the sidewalk on thenorth-side of Douglas Highway. A crosswalk provides access across Douglas Highway near the BreezeInn convenience store that ties in to a wide shoulder on the south side of Douglas and North DouglasHighways.

Bicycles currently utilize the bike lanes adjacent to the traffic lanes on the bridge, as well as the pedestrianpathway along the east side of the bridge. On Douglas Highway, bicycles use the bike lane on north sideof the road and shoulder on the south side of the road. On North Douglas Highway, bicycle traffic utilizesthe shoulder lanes on both sides of the road.

Proposed Action – Widen the existing 10th Street and Egan intersection and incorporate a reversible laneon the Bridge. The project also includes construction of a single-lane roundabout serving the 10th StreetBridge, North Douglas Highway, and Douglas Highway. The Sitka Street connection to North DouglasHighway will be realigned to the west. The preliminary engineering study describes the project as follows:

“…widen the approaches to the intersection and convert the Douglas Bridge from two to threelanes. The center lane north of the bridge’s crest vertical curve would be reversible, flowingtoward Juneau during the morning peak hours and toward Douglas for the remainder of theday. New overhead changeable legend (red X and green arrow) signs would control thereversible lane operation over the bridge. Overhead changeable legend lane control signs(left turn only, lane closed, etc) would be used to control the use of turn lanes on the eastEgan Drive (Downtown), 10th Street, and Douglas Bridge approaches to the 10th and Eganintersection.”

The preferred alternative widens the pedestrian path over the bridge from 6’ to a 7.5’ multi-use path. Pedestrian crossing will no longer be permitted across Egan Drive on the west side of 10th Street. Pedestrians will cross to and from refuge islands on the northwest and southeast quadrants of the 10th andEgan intersection and cross Egan Drive proper with the protection of the traffic signal. Pedestrian crossingsare shown on the Bridge and Douglas legs of the proposed roundabout crossing single lanes of traffic at atime. No pedestrian crossing is indicated on the North Douglas leg of the roundabout.

Bicycle access will be on the multi-use pathway as well as in the traffic lanes shared with the vehicle traffic. It is anticipated that commuting bicycles with a desire to travel on the roadway will enter the roundaboutin the same manner as motor vehicles, and travel through the 10th and Egan intersection with other vehicles.


The roundabout on the Douglas side of the bridge will encourage vehicles to travel at a slower speed thantypically observed on the bridge today, increasing safety for vehicles, pedestrians and bicycles.

ANALYSIS

In accordance with Alaska Statute:

Sec. 35.30.010(a)(1) if the project is located in a municipality, the department shall submit the plansfor the project to the planning commission of the municipality for review and approval;

According to the Definitions found in CBJ Code, Section 49.80.120, Egan Drive falls under the categoryof “major arterial street”, Douglas Highway and the Douglas Bridge fall under “minor arterial street,Cordova Street falls under “collector street”, and Sitka Street fall under “local street” (see the definitionsthat follow):

Street, collector, means a street which collects traffic from local streets and connects the minor andmajor arterials.Street, major arterial, means a street with access control, channelized intersections, restrictedparking, and which collects and distributes traffic to and from minor arterials.Street, minor arterial, means a street with signals at important intersections and stop signs on theside streets, and which collects and distributes traffic to and from collector streets.Street, local, means a street intended for vehicular access to abutting property and not intendedfor through traffic.

Chapter 49.35 of the CBJ code identifies requirements for public improvements. This project will bereviewed with respect to Chapter 49.35.

49.35.120 Extent and nature of improvements.

(b) states that “All public streets….shall be constructed … with a paved roadway, curbs, gutters,street lights and a storm drainage system …” and goes on to state “ The requirement for curbs andgutters may be waived upon a determination by the director of engineering that curbs and gutterswould be impractical with the drainage system specified by the engineering department.” Drainagefor the project is proposed to utilize the same storm drainage system as the existing roadway. However, due to the nature of the improvements, it would be advisable to review the final plans inorder to verify that there will be no impacts to adjacent property owners.

(c ) states “install street name signs, traffic control signs and traffic control pavement markings inaccordance with the approved plans and the requirements of the current issue of the Manual onUniform Traffic Control Devices, including the current supplement.” According to the Alaska


DOT&PF Preconstruction Manual, all DOT&PF projects will comply with the M.U.T.C.D.

49.35.210(e) Right-of-way widths. Sub-section (1) Identifies a minimum 100-foot ROW width forprimary arterials, and 80-foot ROW width for secondary arterials. Sub-section (2) identifies a minimum60-foot ROW width for collector, and other minor streets. Egan Drive and the 10th Street Bridge can beclassified as primary arterial. Douglas Highway and 10th Street north of Egan Drive can be classified assecondary arterial. Existing right-of-way widths throughout the project vary in width from 60’ to 200’+. Some additional ROW will be required along the channel side of Egan Drive and on one or both sides of10th Street on the Egan Drive approach to accommodate widening of the roadway. Additional ROW willalso be required from the Breeze Inn property and property adjacent to Sitka Street on the Douglas Islandside of the project. Existing ROW widths, in some cases, do not meet required ROW for the given classof roadway. While reservation of ROW for new construction is important, minimization of impacts toadjacent property owners is important for existing construction. DOT intends to acquire the necessaryROW to effectively implement the project goals, without unnecessary impacts to adjacent property.

49.35.230(b) Sight distance. This section requires that the project meet the requirements of the 1984AASHTO Policy on Geometric Design of Highways and Streets. The Alaska DOT&PF PreconstructionManual directs that DOT&PF project design components comply with AASHTO, therefore the projectwill comply with this section of CBJ Code.

49.35.230(c) Street grades. This section of code requires that grades on arterial streets be less than 6%and other streets, less than 12%. Existing grades are below the recommended grades throughout theproject area. Grades are not yet defined for the proposed project, but are not planned to be greater thanexisting.

49.35.230(d) Intersections. CBJ Code identifies minimum requirements for design in this section. AASHTO requirements meet or exceed the requirements as identified in the CBJ Code. As the projectis designed in accordance with the design criteria outlined in AASHTO, it is assumed to meet all of thedesign criteria outlined in this section of CBJ Code.

49.35.510 Drainage plan. Sub-section (a) states “The developer shall provide a total surface drainage planfor approval by the director of engineering. The plan shall show all drainage facilities and the effect ofproposed drainage changes on the adjacent properties.” The project is not yet developed to the point ofhaving a detailed drainage plan, therefore, a drainage plan will need to be submitted to the engineeringdepartment for review. Of particular interest, will be potential drainage impacts to adjacent propertyowners.

Juneau Coastal Management ProgramChanges made by this project do not conflict with the Juneau Coastal Management and WetlandsManagement programs as described in CBJ Code 49.70.900 and 49.70.1000.


PLAN REVIEW

Comprehensive Plan

The Comprehensive Plan identifies “Traffic congestion at 10th Street and Egan Drive, and DouglasHighway on the Douglas side of the Juneau Douglas Bridge” as a “transportation-related problem”(p. 88).

Policy 4.4.12 states “Encourage DOT&PF to take steps to reduce congestion at Tenth and Egan.”

Policy 4.2.8 states “Urge DOT&PF to adopt detailed and comprehensive improvement plans forroadways under state jurisdiction. These plans should include clear goals and intentions for eachroadway corridor and be developed through a public process.” The proposed project identifiesgoals and intentions in the purpose and need of the project, and DOT is developing the projectthrough an active public process.

Policy 4.3.11 states “Require sidewalks and bicycle paths or lanes along existing or newlyconstructed arterial and collector streets where appropriate to provide safe and efficient access andrecreation and to reduce pedestrian/automobile conflicts.” Because of bridge width constraints, theproposed project will eliminate the bicycle lanes on the Juneau Douglas Bridge. However, bicycletraffic will still be permitted to share the traffic lanes with vehicles, and the bridge will be signed suchthat drivers will be aware that they must share the road with bicycles. The project will also provideadditional width to the separated pathway that will be designated for multi-use, and available toboth pedestrians and bicycles.

Areawide Transportation Plan

? ID-18 Supports “best form and design… to reduce congestion, maximize traffic flow anddevelop extra capacity for long-term growth” This solution also states “Preserve and protectthe safety and access of bicycle and pedestrian users through the project area.

? The proposed project does not conflict with any of the AWTP Mission Statement principlesfound on Page 4 of the plan.

Juneau Non-Motorized Plan

? Page 58, item 3. “Juneau Douglas Bridge Intersection. Fix bike lanes at intersections tomeet AASHTO guidelines: Juneau Douglas Bridge needs a bicycle lane painted to the right ofthe through lane coming from Douglas to Tenth Street.” It is important to insure that bicyclistsare protected as they enter the proposed intersection.

? Page 60, item “18. Intersection of Douglas Bridge and North Douglas Highway. Bicyclistscoming from Juneau going to Downtown Douglas are cut off by vehicles turning right going out


to North Douglas Highway. Signs warning bicycles and motor vehicle drivers as well as a bikelane painted across the right turn lane would help minimize this dangerous situation.” It isimportant to insure that bicyclists are protected as they enter the proposed roundabout.

? Page 60, item “19. Intersection of Douglas Bridge and Egan Drive. Motor vehicles comingfrom Douglas turning right often are looking left watching for traffic and fail to see pedestriansand bicyclists crossing to the island. Painting lines on the pavement to indicate a through lanefor bicycles to Tenth Street and painting a crosswalk across the right turn lane could helpminimize this dangerous situation.” Crosswalks will be painted as part of the intersectionimprovements. As there is no longer a separate bicycle lane, painting a through lane at theintersection will not be beneficial, and may cause added confusion. DOT/PF recognizes thatit is important to insure that pedestrians and bicyclists are protected as they enter theintersection.

FINDINGS

Staff finds that project to make intersection and bridge marking improvements, complies with CBJ LandUse Code (Title 49), and is consistent with plans adopted by the Assembly.

RECOMMENDATION

Staff recommends the Planning Commission grant the CSP with the following conditions:

? A full set of construction drawings shall be supplied to the City and Borough of Juneau EngineeringDepartment for review with respect to the effect of drainage on adjacent properties in accordance withCBJ §49.35.510.

Documents

TO: FROM - City and Borough of Juneau – Alaska's … · 2002-12-04 · one-way couplet as the preferred engineering solution for relieving pressure on the 10th and Egan ... side