I-794 Lake Freeway Bicycle/Pedestrian Feasibility Study County

EXECUTIVE SUMMARY INTRODUCTION In accordance with policy set forth by the Federal Highway Administration (FHWA), as well as state laws and policies, the Department of Transportation (WisDOT) is evaluating the feasibility of adding a shared-use path to the Daniel Hoan Bridge (Hoan Bridge) as part of the rehabilitation project expected to begin in 2013. This study includes an evaluation of the feasibility of alternatives for a shared-use path along Interstate 794, Lake Freeway (I-794), specifically along the Hoan Bridge. I-794 LAKE FREEWAY (HOAN BRIDGE REHABILITATION) PROJECT SCOPE WisDOT is moving forward on a project to make major improvements to the Hoan Bridge and the I-794 Freeway. This project is divided into three segments: 1. I-794 East-West ( to the Lake Interchange) • Remove and replace bridges with new structures 2. Lake Interchange (I-794 East-West to the Hoan Bridge) • Overlay concrete and repair concrete surface 3. Hoan Bridge (Lake Interchange to Lincoln Avenue) • Remove and replace the existing bridge deck and make structural modifications • Blast, clean, and repaint the bridge steel Though the Hoan Bridge deck replacement project currently does not include the addition of a shared-use path to the bridge, certain FHWA and state guidelines recommend investigating the feasibility of adding a shared-use path to projects involving a bridge redeck. EXISTING CONDITIONS EVALUATION The Hoan Bridge in its existing condition is 108 feet wide and consists of three 12-foot wide travel lanes in both the northbound and southbound directions. In both directions of travel, the left shoulder is 6 feet wide and the right shoulder is 10 feet wide. The bridge is currently (2011) limited to two lanes going both northbound and southbound due to ongoing maintenance projects. The posted speed limit is 50 miles per hour. The Hoan Bridge currently accommodates motor vehicle traffic; bicyclists and pedestrians are prohibited on the bridge. The Milwaukee County Oak Leaf Trail currently acts as the primary bicycle trail connecting the Bay View neighborhood to Downtown. The trail is off-road at Cupertino Park and transitions to a route along a series of municipal streets at Russell Avenue at the south end of the Hoan Bridge. Traveling along the variousDRAFT municipal streets north to Michigan Avenue, the off-road segments of the trail resume along the west side of Lincoln Memorial Drive and along , east of the Milwaukee Art Museum and north of the Discovery World Museum. At the north end there is also a connection to the Hank Aaron State Trail at Lakeshore State Park. DESIGN ELEMENTS WisDOT standards state that the shared-use path on a high-speed facility such as the Hoan Bridge would require that the shared-use path be separated by a barrier. Further, the shared- use path must comply with other design and safety measures which include compliance with the Americans withzyxwvutsrqponmlkjihgfedcbaZYXWVUTSRQPONMLKJIHGFEDCBA Disabilities Act (ADA).

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I-794 Lake Freeway Bicycle/Pedestrian Feasibility Study Milwaukee County

Given the engineering focus of this study, design criteria were developed based on engineering guidelines accepted by both FHWA and WisDOT. The resources include: • WisDOT’s Facilities Development Manual (FDM) • WisDOT’s Bridge Design Manual • zyxwvutsrqponmlkjihgfedcbaZYXWVUTSRQPONMLKJIHGFEDCBAWisDOT’s Bicycle Facility Planning Handbook • AASHTO’s Guide for the Development of Bicycle Facilities • AASHTO’s A Policy on the Geometric Design of Highways and Streets • AASHTO’s A Policy on Design Standards – Interstate System • FHWA’s Manual on Uniform Traffic Control Devices DESCRIPTION OF ALTERNATIVES The original scope of the current study addressed four alternatives to provide a shared-use path on the Hoan Bridge. These alternatives were studied by WisDOT and the consultant team and have been expanded to include additional sub-alternatives. Of the 11 total alternatives analyzed, six were eliminated as infeasible. The five alternatives that were carried forward in the study are described below. Alternative 1 Alternative 1 involves adding a shared-use path on the existing roadway of the Hoan Bridge/I• 794 structure without increasing the width of the bridge. This alternative would require the assignment of at least one travel lane to accommodate the shared-use path, resulting in the reduction in motor vehicle travel lanes on the bridge. Alternative 1A Alternative 1A involves the reduction of the I-794 northbound lanes from three to two travel lanes and the addition of a shared-use path for bicyclists and pedestrians located on the east side of the bridge. Alternative 1B Alternative 1B involves the reduction of I-794 northbound lanes from three to two travel lanes and the addition of a shared-use path for bicyclists and pedestrians in the center of the structure. Under this alternative, the shared-use path would be offset from the centerline of the structure. Alternative 2A Alternative 2A involves a shared-use path on the east side of I-794. This would involve widening the bridge on the approachDRAFT spans, curving out around the horizontal tie girder on the main span, and attaching the shared-use path to the east side of the horizontal tie girder of the bridge. This alternative does not require a reduction in the number of travel lanes along I-794. Alternative 3B Alternative 3B proposes the construction of an additional elevated structure above the existing roadway of the Hoan Bridge. Like Alternative 2A, it does not require a reduction in travel lanes along I-794. Alternative 4 Alternative 4 involves the construction of a separate shared-use structure adjacent to I-794.

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I-794 Lake Freeway Bicycle/Pedestrian Feasibility Study Milwaukee County

EVALUATION OF ALTERNATIVES Impact on Traffic Operations Because alternatives 1A and 1B include a reduction in vehicular travel lanes, this feasibility study includes an analysis of existing and future traffic operations along the Hoan Bridge. WisDOT developed design year (2035) traffic forecasts using sound technical methodologies. The forecasts included a 0.8% annual growth rate based on recent traffic growth trends on the Hoan Bridge as well as a modest 0.5% annual growth rate that considered the potential for a future growth rate lower than the recent trend. The Southeastern Wisconsin Regional Planning Commission (SEWRPC) independently developed a 2035 traffic forecast from a regional travel simulation model based on forecasts of land use, population, and transportation facilities. The SEWRPC forecast also equated to a 0.8% annual growth rate. This approach provided the basis for performing sensitivity analysis for future traffic operations. The current Hoan Bridge configuration of three traffic lanes in each direction operated during the year 2010 peak hour at level of service (LOS) ‘C’. If a traffic lane was removed in either direction (alternatives 1A and 1B), the Hoan Bridge is anticipated to have operated at LOS ‘D’ to ‘E’. Construction on the Hoan Bridge in 2011 resulted in motorist diversion, which lessened the overall operational impacts. Under the three-lane configuration, the Hoan Bridge is anticipated to operate at LOS ‘C’ to ‘D’ in 2035. Alternatives 1A and1B will require the reduction of one northbound lane along the I-794 corridor between the Lake and Carferry Drive interchanges. If a traffic lane is removed in either direction the Hoan Bridge is anticipated to operate at LOS ‘E’ to ‘F’ in 2035. The latter result is below WisDOT’s acceptable design year standard of LOS ‘D’ for Milwaukee County freeways. These conditions would worsen over the 50+ year life of the investment. Structural Feasibility An important element of determining the feasibility of each alternative is assessing the structural adequacy. Each alternative presented was modeled based on the depictions shown in the renderings and other details to determine the feasibility of constructing a shared-use path on the existing I-794 structure. Assumptions and simplifications were made in the individual analysis in order to identify “fatal flaws” of the alternatives presented. The alternatives were investigated for an occasional single maintenance truck utilizing the shared-use path to facilitate snow removal and routine maintenance. In addition, all alternatives, except for 3B, were evaluated to support the use of a UB vehicle to be utilized for inspection of the structure. To assess structural feasibilityDRAFT of each alternative, the following items were considered: • Existing structural capacity and rating • Additional loading applied to the structure • Reduction of existing structural capacity and rating • Required retrofits to existing structural elements All of the alternatives referenced in this summary were determined to be structurally feasible. However, due to additional loading, significant retrofits of the structural components of the existing Hoan Bridge would be required for alternatives 2A and 3B. While this study indicates

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I-794 Lake Freeway Bicycle/Pedestrian Feasibility Study Milwaukee County

that both alternatives are feasible, further design analysis on the main span’s complex tied-arch system may result in additional changes. North and South Access Locations The evaluation of the feasibility of adding a shared-use path to the I-794 corridor must also consider safe access and network connectivity to trails and municipal streets within the study area. A review of existing facilities indicates that a new shared-use path along the I-794 corridor would have logical connection points to Milwaukee trail facilities and municipal streets at the following locations: • At the south end of the study area, an off-road segment of the Milwaukee County Oak Leaf Trail is located at the intersection of East Russell Avenue and South Lincoln Memorial Drive in Cupertino Park. Russell Avenue and other municipal streets provide connections to the Bay View neighborhood. • At the north end of the study area there are off-road segments of the Oak Leaf Trail on the west side of Lincoln Memorial Drive and along the lakefront on the east side of the Milwaukee Art Museum. This is also a connection to the Hank Aaron State Trail. There are arterial streets such as Lincoln Memorial Drive, Michigan Avenue and Clybourn Avenue that provide connections to Downtown Milwaukee and the lakefront. Other Considerations Other considerations beyond traffic, structural feasibility and access play a critical role in evaluating different alternatives for the shared-use path on the Hoan Bridge. These considerations include: • Maintenance – the regular upkeep of the shared-use path. This includes snow removal, snow storage, and drainage. • Real Estate Impacts – impacts on structures, roads, rail lines, parking lots, and other property. • Inspection and Emergency Vehicle Access – the ease with which essential vehicles such as a snooper for routine inspection or an ambulance for emergency operations can access the shared-use path; the ease with which an inspection team can fulfill its roles of routine fracture critical inspection (every 24 months). • Construction Schedule – the affect that the addition of a shared-use path will have on the construction schedule for the rehabilitation of the Hoan Bridge as described in Section 2.0 of thisDRAFT report. Cost Estimated construction costs have been developed for the alternatives presented in this study. Major areas of work have been identified, quantities estimated, and unit prices have been developed based on historic averages for similar types of work. In addition, a contingency factor has been added to the estimates that reflects the planning level of development and analysis of each of these alternatives.

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I-794, Lake Freeway Bicycle/Pedestrian Feasibility Study Milwaukee County Summary Table Alternative 1A Alternative 1B Alternative 2A Alternative 3B Alternative 4 NB I-794 reduced to 2 travel lanes; shared- Criteria NB I-794 reduced to 2 travel lanes; shared- No reduction in travel lanes; existing No reduction in travel lanes; shared-use path No reduction in travel lanes; shared-use path use path on east side of the existing use path in center of the existing structure structure widened to accommodate shared- over existing structure on separate structure structure zyxwvutsrqponmlkjihgfedcbaZYXWVUTSRQPONMLKJIHGFEDCBAuse path on east side of facility Traffic Impacts – Corridor and traffic merges – Corridor and traffic merges – Results in acceptable levels of – Results in acceptable levels of – Results in acceptable levels of operate at LOS ‘E’ to ‘F’ in operate at LOS ‘E’ to ‘F’ in 2035 service along the segment and all service along the segment and all service along the segment and all  2035   merge/diverge locations within  merge/diverge locations within the  merge/diverge locations within the corridor corridor the corridor Structural Feasibility – Ramp at south end of the – South end of structure would – Existing structure will require – The entire length of the existing – Special erection method of the structure would require require widening significant retrofits to the main structure will require significant structure is needed due to high widening span tied arch and approach spans retrofits to support the shared-use elevation over the Milwaukee – Reduced northbound right    path  River  – Reduced northbound right shoulder width to 8′ – New substructure supports will be shoulder width to 8′ required North and South – Access to existing trail – Access to existing trail – Access to existing trail – Access to existing trail connections – Access to existing trail Access Locations connections at the north and connections at the north and south connections at the north and south at the north and south ends are connections at the north and south south ends of the bridge are ends are difficult due to the need ends of the bridge are easily difficult due to the need to cross ends of the bridge are easily

easily signed and follow a  to cross active travel lanes of I-  signed and follow a direct route  active travel lanes of I-794 to  signed and follow a direct route  direct route 794 to provide connection to area provide connection to area trails trails and streets and streets − Agreements with a maintaining − Agreements with a maintaining − Location of shared-use path − Location of shared-use path greatly − Location and width of shared-use Maintenance authority needed for snow  authority needed for snow  greatly limits snow removal  limits snow removal capabilities  path make it extremely difficult  removal removal capabilities for snow removal equipment

– Real estate impacts limited to – Real estate impacts limited to – Right of way acquisition will be – The span lengths, and thus the – There is a 400′ gallery building access locations access locations necessary to construct the location of the support piers, may along the east edge of the Hoan Real Estate substructure supporting the need to be adjusted to avoid Bridge on the MMSD property Impacts     

additional width of the obstruction above and underground that will complicate the placement superstructure of the new piers − Inspection and maintenance – Inspection and maintenance – Maintenance and inspection – Inspection can be performed from – Maintenance for the existing I- vehicles would require closure would limit north bound traffic to hindered due to the shared-use the deck of the Hoan Bridge with 794 structures may be more Inspection/ of the bike lane 1 travel lane due to reduced right path being cantilevered from the standard man-lift inspection difficult and costly due to the Emergency shoulder width structure on the main span vehicles proximity of the proposed Vehicle − Potential difficulties for      separate facility

Other Considerations Access emergency responders due to – Potential difficulties for – Difficult for emergency vehicles to reduced number of lanes emergency responders due to provide assistance to those that may – Difficult for emergency vehicles reduced number of lanes require it to provide assistance

− South connection structural – One less barrier to construct DRAFT– Significant structural − Complex and multi-phased – Can be constructed as an Construction work may add to construction compared with Alternative 1A modifications and substructure construction required to retrofit independent project at a separate schedule construction will add considerable framing system time Schedule  – Additional time required for north     time to the construction schedule and south connections for this accelerated project

2011 Delivery $9.4 M $27.5 M $76.4 M $ 95.5 M $ 84.4 M

Cost Cost

No Significant Concerns Identified Caution Caution Red- Flag   Concerns Identified  Moderate Concerns Identified  Major Concerns Identified E - 5