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HomeMy WebLinkAboutAgenda - 02-17-2003-10aORANGE COUNTY BOARD OF COUNTY COMMISSIONERS ACTION AGENDA ITEM ABSTRACT Meeting Date: February 17, 2003 Action Agenda Item No. ) Q _Q SUBJECT: Report from the Joint Orange Grove Road Transportation Group DEPARTMENT: Planning and Inspections PUBLIC HEARING: (Y/N) No ATTACHMENT(S): Excerpt from JOGRTG -Orange Grove Road Case Study JOGRTG Report and Access Management Plan (under separate cover) INFORMATION CONTACT: Craig Benedict, ext. 2592 Karen Lincoln, ext. 2594 TELEPHONE NUMBERS: Hillsborough 732-8181 Chapel Hill 968-4501 Durham 688-7331 Mebane (336)227-2031 PURPOSE: To receive a report from the Joint Orange Grove Road Transportation Group. BACKGROUND: The Orange County Board of Commissioners and Hillsborough Town Board, at a joint meeting in May of 2002, established the Joint Orange Grove Road Transportation Group (JOGRTG) as part of a continuing planning cooperative effort. Existing and proposed development activity as well as existing public facilities such as schools in this corridor prompted a review of transportation issues and a discussion regarding the range of transportation planning initiatives that can lead to awell-planned, safer, multimodal transportation system in concert with a coordinated land use development pattern. The North Carolina Department of Transportation (NCDOT) was also a partner in the effort. The JOGRTG found that the crux of many solutions was based in access management. The Orange Grove Road Access Management Plan is the product of the group's work. The Access Management Plan will help manage growth in the area, as well as promote safety for motor vehicle, pedestrian and bicycle traffic. Other groups can use this report and goals to support their efforts in related areas such as "Walkable Hillsborough" initiatives. FINANCIAL IMPACT: There is no direct financial impact associated with this item. RECOMMENDATION(S): The County Manger recommends that the Boards receive the report and consider authorizing staff to pursue the recommendations. 2 PHASE II ORANGE COUNTY CASE STUDY I. BACKGROUND I1. COMPREHENSIVE LAND USE REVIEW III. ROAD CONNECTIVITY IV. RECOMMENDATIONS FOR ROAD CONFIGURATION V. INTERSECTION IMPROVEMENTS AND SIGNALIZATION VI. ACCESS MANAGEMENT AND RECOMMENDED LAND USE CONTROLS VII. RECOMMENDATIONS 3 I. Background The Orange Grove Access Management Plan is being created by a joint effort between the Town of Hillsborough and Orange County to address development pressures in the Orange Grove Road corridor and corresponding impacts to the safety of bicycle and pedestrian traffic in the corridor. Providing safe access for school children traveling to Grady Brown Elementary School and Cedar Ridge High School and bicycle and pedestrian traffic crossing the bridge over Interstate 40 was a major factor in the appointment of the Joint Orange Grove Road Transportation Group by the Hillsborough Town Board and the Orange County Board of Commissioners. The commissioners, at a joint meeting of the two boards on May 6, 2002, agreed to appoint two commissioners from each jurisdiction to study transportation issues in the Orange Grove Road corridor and prepare a recommendation on ways to address those issues. The group's recommendations are contained in this access management plan for the Orange Grove Road corridor. The study area for the corridor extends along Orange Grove Road from Churton Street to New Grady Brown School Road and includes the largely undeveloped area bounded by I-40, I-85 and Oakdale Drive. Orange Grove Road is a two-lane, twenty-foot wide shoulder section road. Bicycles must share the 10-foot travel lanes with motor vehicles and there are no sidewalks. The North Carolina Department of Transportation does not own nor have aright-of- way easement throughout the entire corridor for the currently proposed sixty-foot right-of-way. In the last few years, there have been several proposals for multifamily residential development in the corridor. The Heritage, a 171-unit multifamily development in the corridor, was approved January 2000. The Town of Hillsborough, since then, has received several applications for multifamily developments and anticipates making decisions on applications for two developments totaling 516 units between December 2002 and February 2003. Roadway improvements in the corridor will be needed to accommodate new development. Development applications that impact the corridor should address dedication of right-of-way, construction of turn lanes, intersection improvements, bicycle and pedestrian needs and other deficiencies that may be exacerbated by the new development. This document provides guidance for the improvement of the corridor with recommendations regarding road connectivity, road cross section and bicycle and pedestrian access, and land use controls. 4 II. Comprehensive Land Use Review The study area lies almost entirely within Hillsborough's land use jurisdiction. Only the portion from Interstate 40 to New Grady Brown School Road is within the land use jurisdiction of Orange County. Orange Grove Road from Churton Street to Mayo Drive is currently zoned for general commercial uses to provide for future expansion of the general commercial district south of the historic downtown area. The remainder of the corridor is zoned for residential uses ranging from low-density agricultural residential zoning to high-density multifamily zoning. Retail and service operations exist within walking or cycling distance from the residentially zoned property, but there are no roadway connections from the residential areas to the commercial district on Churton Street. This plan recommends several connections that can be realized with future land use decisions. New Grady Brown Elementary and newly constructed Cedar Ridge High School are within walking and cycling distance from residential areas. The schools are located on New Grady Brown School Road which takes access from Orange Grove Road and Dimmocks Mill Road. Both Orange Grove Road and Dimmocks Mill Road are on adopted bicycle plans for the Town of Hillsborough or Orange County. However, lack of adequate bicycle facilities on those roads and on New Grady Brown School Road present an unsafe environment for using bicycles as a means for transportation to the schools. Likewise, lack of sidewalks throughout the corridor make walking undesirable. Another major obstacle to the safety of bicycle and pedestrian transportation and the connectivity of the Orange Grove Road bicycle route is the narrow two-lane bridge that carries Orange Grove Road over Interstate 40. Bicyclists and pedestrian must share the roadway with motor vehicles crossing the bridge, as there are no shoulders or facilities for cyclists or pedestrians. There is a large amount of undeveloped land between the commercial district along Churton Street and the area bounded by Interstate 85, Orange Grove Road and Oakdale Drive. This plan recommends roadway connections that could form a network to provide easy access between development along Orange Grove Road and the commercial areas along Churton Street and also to the schools. 5 III. Road Connectivity Access management in the Orange Grove Road corridor includes recommendations for new roadway connections from Orange Grove Road to other major roads in the area as new development takes place. Arrows outlined in white on Map 1. Orange Grove Parcels show potential access points for construction of new roads in the corridor to help manage congestion by limiting the points of access to the corridor. The arrows also indicate where extensions of existing subdivision roads can be used to connect with proposed access points and provide a road network within the area between Churton Street, Orange Grove Road, Interstate 85 and Oakdale Drive. The proposed access points can be used as a guide for the design of future development proposals. This plan recommends that the Town pursue the realignment of Eno Mountain Road to align with the intersection of Mayo Street at Orange Grove Road to resolve traffic conflicts caused by the close proximity of the intersections of two urban major thoroughfares with another urban major thoroughfare. That intersection would potentially warrant a traffic light. The plan also recommends the extension of Orange Grove Road from Churton Street to US 70 Business. That connection would provide an alternative access to the US 70 Business/NC 86 corridor and alleviate congestion on Churton Street. The connection would also provide a more direct route to Eno Mountain and western Hillsborough from the US 70 Business corridor. MAP 1 TO BE INCLUDED IN COMPLETE REPORT 7 IV. Recommendations for Road Configuration The Joint Orange Grove Road Transportation Group recommended several changes to the Hillsborough Transportation Plan regarding proposed roadway sections. Orange grove road is designated as a major urban thoroughfare with average daily traffic of 4,100 in 2001. The proposed cross section is a two-lane, 24-foot shoulder section within a 60- foot right-of-way. Traffic projections in the corridor do not warrant widening the road since the existing and proposed cross section has adequate capacity (14,000 ADT) to handle the projected average daily traffic at level of service E. Regional urban highway capacity figures are calculated at level of service E. Level of service E represents operating conditions at or near the capacity level with reduced speeds and difficulty maneuvering within the traffic streams. Operations at level of service E are usually unstable because small increases in flow or minor perturbations within the traffic stream will cause breakdowns. This plan recommends a cross section for Orange Grove Road that will be adequate to operate in the future at a higher level of service. The new housing proposals in the Orange Grove Road corridor, all of which could be approved by February 2003, have the potential of creating 4,400 (approximately) trips per day. Traffic generated by the new high school at capacity (1,000 students) could easily create more than 1,0 trips per day during the school year. Traffic from the known development, combined with existing traffic counts in the corridor, will outpace the traffic projected for 2020 in the 1997 Transportation Plan for the Town of Hillsborough. That plan projects 8,300 average daily traffic in 2020 and traffic generated by current development proposals may result in average daily traffic over 9,000 within the next five years. Recommended cross sections for Orange Grove Road are shown in Figure 1. Proposed Street Cross Sections. The recommended cross sections include three shoulder sections (figures 1 a, 1 c and 1 d) and a curb and gutter section (figure 1 b). The recommended shoulder sections require an 80-foot right-of--way to accommodate two 11' - 12' travel lanes with a bicycle lane, shoulder and drainage ditch in each direction. Two of the shoulder sections and the curb and gutter section place 5' sidewalks outside the drainage and utility areas which would allow construction of the sidewalks prior to widening the roadway for bicycle lanes. Placement of pedestrian facilities in that manner, farthest from the travelway, provides more separation between pedestrian and motor traffic and increases safety and comfort level for all traffic. 8 Figure 1. Proposed Street Cross Sections Figure 1a. PROPOSED STREET CROSS SECTION SHOULDER SECTION 80' 11'-12' 11'-12' 5' 4' 4' 5' I I 19' - 20' I 19' - 20' c Shoulder & , ~ Vehicle Vehicle ~ Shoulder & 3 _ `~ Drainage ~ Lane Lane ~ Drainage ~ ~ Y_ Y ~ fn m m Figure 1 b. PROPOSED STREET CROSS SECTION CURB & GUTTER SECTION 80' N 5' Cn 4' 11 ' - 12' 11 ' - 12' 11' - 12' 4' 5' N I I I I I I ' I I ' Vehicle lane Left turn Vehicle lane n L~ lane ~~ ~i ~Q° 3 ~ ~ c c~ c ~c c~ ~ ~ ~ 3 a~ ~ ~~ a~ a~ ~~ ~ a~ cA ~ U~ m m ~ to 9 Figure 1c PROPOSED STREET CROSS SECTION SHOULDER SECTION 80' 5' 4 4 5' ' 11' -12' 11'- 12' ' , 19' - 20' ~c Shoulder & `~ Drainage a~i , ~ , ~ Vehicle ~~ Lane Y; m; Figure 1d. PROPOSED STREET CROSS SECTION SHOULDER SECTION 19'-20' Vehicle ~ Shoulder & 3 ' Lane ~' Drainage ~ Y_; ~ i m~ , 80' 11'-12' 11'-12' 6'-8' 6'-8' i i i , , Vehicle lane Vehicle lane L L ~ Q~ 0 LL vJ LL VJ 10 V. Intersection Improvements and Signalization Recommended improvements to intersections within the study area are given in the following tables. The numbers of the intersections in the table correspond to the numbers assigned the intersections on Map 2. Hillsborough-Orange County Study Area. Hillsborough/Orange County Study Area Identification of Intersections Interstate Interchanges A I-40 and Old NC 86 (SR 1009) Existing: Four-lane freeway (grade- separated) interchange with two- lane urban major thoroughfare/arterial Proposed: Four (or six)-lane freeway interchange with four-lane median divided, bicycle and pedestrian friendly design urban major thoroughfare/arterial. B I-85 and Old NC 86 (SR 1009) Existing: Four-lane freeway interchange with two-lane major urban thoroughfare having three-lane section at interchange to provide left turn lanes. 11 I-40 and Orange Grove Road (SR Existing: Two-lane major urban thoroughfare bridge over four-lane freeway. Proposed: Six-lane freeway interchange with four- lane median divided, bicycle and pedestrian friendly design urban major thoroughfare. 1006) Proposed: Two-lane major urban thoroughfare bridge with added facilities for bicycles and pedestrians over four-lane or six- lane freeway. Railroad Intersections 18 US 70A East and newly proposed Orange Grove Road extension Existing: Proposed: Two-lane urban major Two-lane (with left turn lanes at thoroughfare. intersection) or three-lane (continuous left turn lane) shoulder section urban major thoroughfare with bicycle lanes and sidewalks grade separated crossing. Any new crossings of railroads within the Southeastern High Speed Rail Corridor must be grade-separated crossings. Intersections With Traffic Lights 4 Orange Grove Road (SR 1006) and New Grady Brown School Road (SR 1221) 11 (western boundary of EDD) Existing: Two -lane urban major thoroughfare /collector intersection with two-lane urban minor thoroughfare/major local road. Proposed: Two-lane or three-lane (continuous left turn lane) urban major thoroughfare/collector with bicycle lanes and sidewalks (north of intersection) intersection with two-lane minor thoroughfare/major local road with bicycle lanes and sidewalks. 7 Old NC 86 (SR 1009) and Oakdale Drive (SR 1133) Existing: Proposed: Two-lane urban major thoroughfare Four-lane median divided (bicycle and /arterial (three-lane section at pedestrian friendly design) urban major intersection with left turn lanes) thoroughfare/arterial intersection with intersection with two-lane urban two-lane urban minor thoroughfare minor thoroughfare. (three-lane section with left turn lanes at intersection) with bicycle lanes and sidewalks. Intersections With Traffic Lights 12 Old NC 86 (SR 1009) and Mayo Street Existing: Two-lane urban major thoroughfare (three-lane section at intersection with left turn lanes) intersection with two-lane urban major thoroughfare (three-lane section at intersection). Proposed: Four-lane median divided (bicycle and pedestrian friendly design) urban major thoroughfare intersection with two-lane urban major thoroughfare (three-lane section with left turn lane at intersection). 12 Intersections With Traffic Lights 17 Old NC 86 (SR 1009) and Orange Existing: Two-lane urban major thoroughfare (three-lane section at intersection with left turn lanes) intersection with two-lane urban major thoroughfare (three-lane section with left turn lanes at intersection). 23 US 70A East and Churton Street Existing: Two-lane urban major thoroughfare (three-lane section at intersection with left turn lane) intersection with two-lane urban major thoroughfare (southbound three-lane section with left turn lane at intersection). Grove Road (SR 1006) Proposed: Four-lane median divided (bicycle and pedestrian friendly design) urban major thoroughfare intersection with two-lane urban major thoroughfare (three-lane section with left turn lane at intersection) or three-lane (continuous left turn lane) with bicycle lanes and sidewalks. Proposed: Four-lane urban major thoroughfare intersection with four-lane median divided, bicycle and pedestrian friendly design urban major thoroughfare Intersections Without Traffic Lights 3 Old NC 86 (SR 1009) and Lafayette Drive (within EDD) Existing: Proposed: Two-lane major urban thoroughfare Four-lane median divided (bicycle and /arterial (northbound three-lane pedestrian friendly design) urban major section with left turn lane at thoroughfare intersection with two-lane intersection) intersection with two- urban minor thoroughfare (three-lane lane local street. section with left turn lanes at intersection). 13 Intersections Needing Traffic Lights 5 Orange Grove Road (SR 1006) and Oakdale Drive (SR 1133) Existing: Proposed: Two -lane urban major Two-lane (three-lane section with left thoroughfare intersection with turn lanes at intersection) orthree-lane two-lane local road. (continuous left turn lane) urban minor thoroughfare with bicycle lanes and sidewalks intersection with two-lane local road (with left turn lane at intersection) with bicycle lanes and sidewalks. Traffic Light Proposed. 15 Mayo Street and proposed realignment of Eno Mt. Road (SR 1148) with Orange Grove Road (SR 1006) Existing: Proposed: Two-lane urban major Two-lane (three-lane section with left thoroughfare (three-lane section at intersection) intersection with two-lane urban major thoroughfare. turn lanes at intersection) urban major thoroughfare intersection with two-lane (three-lane section with left turn lanes at intersection) orthree-lane (continuous left turn lane) urban major thoroughfare with bicycle lanes and sidewalks. 14 Proposed Intersections 6 Oakdale Drive (SR 1133) and newly proposed road (north of EDD) Existing: Proposed: Two-lane urban minor Two-lane (three-lane section with left thoroughfare. turn lanes at intersection) or three-lane (continuous left turn lane) urban minor thoroughfare) with bicycle lanes and sidewalks intersection with new two- lane urban minor thoroughfare/collector (three-lane section with left turn lane at intersection). Orange Grove Road and proposed access point (approximately .2-mile northeast of Oakdale Drive) to align access to future developments on north and south sides of Orange Grove Existing: Proposed: Two-lane urban minor Two-lane (three-lane section with left thoroughfare. turn lanes at intersection) or three-lane (continuous left turn lane) urban minor thoroughfare) with bicycle lanes and sidewalks intersection with new two- lane urban major local road (three-lane section with left turn lane at intersection). 15 MAP 2 TO BE INCLUDED IN COMPLETE REPORT 16 VI. Access Management and Recommended Land Use Controls Land Use controls to restrict driveway access in the corridor and provide for signalized intersections to meter traffic in an efficient manner can be implemented through revisions to Hillsborough's Subdivision Regulations. This plan describes various access management tools that can be incorporated into land use decisions in the corridor such as: Shared driveways and provisions for common access off Orange Grove Road for new subdivisions; Connectviity of roads in new development to existing road stubouts; Extension of new roads to adjacent areas for future development. See Phase VI for full list of access management tools. 17 VII. Recommendations The Joint Orange Grove Road Transportation Group recommends the following actions to alleviate unsafe conditions and to manage potential congestion from future development in the Orange Grove Road corridor. The recommendations address flue basic issues: 1. obtaining funding for improvements to enhance safety for all modes of traffic; 2. providing pedestrian facilities (sidewalks) in the corridor; 3. implementation of recommendations into local plans and regulations; 4. recommendations for future studies; and 5. distribute the report to community groups for comments. 1. Pursue funding to implement recommendations in this study. The Transportation Improvement Program (TIP), Spot Safety funds and Small Urban Funds are potential funding sources for roadway improvements. Small Urban Funds may be used for projects within 1-mile outside city limits. Both Small Urban and Spot Safety funding sources are subject to the discretion of the Division's Board of Transportation (BOT) member, and are generally requested for projects in the $50,000 to $200,000 range. The local jurisdiction(s) must request those funds from the BOT member. Transportation Improvement Program, in general, is used to fund projects that cost $300,000 or more. There are also some contingency funds that may be requested through the area's representatives to the State legislature. The local jurisdictions should pursue funding to advance the following improvements in the Orange Grove Road corridor. Pursue funding to widen the bridge on Orange Grove Road over Interstate 40 to include bicycle and pedestrian facilities. North Carolina Department of Transportation estimates the cost to add bicycle and pedestrian facilities to the bridge is approximately $750,000. Pursue funding and work with NCDOT to install a crosswalk with a flashing light to warn vehicles of the pedestrian crossing at the bus driveway entrance at Grady Brown Elementary School. Pursue funding and work with NCDOT to investigate installing a traffic light at the intersection of Oakdale Drive and Orange Grove Road, and to provide right turn lanes on both Oakdale Drive and Orange Grove Road to assist traffic flow through the intersection. 2. Provide pedestrian facilities along Orange Grove Road. - Research actual right-of-way along Orange Grove Road throughout the corridor study area through land records and pursue feasibility of obtaining the recommended 80' right-of-way through dedication or acquiring easements. Investigate installing sidewalks along the north side of Orange Grove Road in the corridor study area including determining the feasibility of construction with respect to changes in elevation along the road and with respect to cost. 18 After technical report has been received by both the Hillsborough Town Board and the Orange County Board of Commissioners, if the data indicates that construction of a sidewalk on the north side of Orange Grove Road is not financially feasible, pursue widening Orange Grove Road to 12' lanes with, at a minimum, 4' paved shoulders and preferrably with 6' or 8' paved shoulders to allow for a shared bicycle/pedestrian facility. Coordinate with the School Board to pursue installation of sidewalks along Orange Grove Road adjacent to the school property, along New Grady Brown School Road and from the proposed cross walk on New Grady Brown School Road to the Grady Brown School and to Cedar Ridge High School. 3. Implement recommendations into local plans and regulations. Include recommendations in this study in the development of Multi-modal Transportation Plans for Orange County and the Town of Hillsborough. Adopt recommended cross section for Orange Grove Road into Orange County and Town of Hillsborough zoning ordinances and subdivision regulations. Amend each jurisdictions respective land use regulations to support and/or implement recommendations in this study including a provision that any development having ingress/egress off Orange Grove Road in the study area either construct its fair share of recommended improvements or provide payment in lieu of for such improvments. Support TIP Project R2825, South Churton Street improvements, by continuing to assign a high priority to that project as a transportation need in the biennial update of the TIP. 4. The following items are recommended for Future Studies. Work with the business community through the Economic Development Commission and the Orange County/Hillsborough Chamber of Commerce to implement the recommendations in the Feasibility Study for South Churton Street concerning Daniel Boone Village and to develop access management for other businesses in the South Churton Street corridor. Pursue a future study for the Oakdale Drive corridor. 5. Distribute Orange Grove Road Study and Access Management Plan to community groups for comments.