Veterans Memorial Parkway/36Th Street

Sara M. Baker, President John S. Franden, Vice President Rebecca W. Arnold, Commissioner Mitchell A. Jaurena, Commissioner Jim Hansen, Commissioner

Planning and Programming February 5, 2013

TO: Commissioners, Director and Deputy Directors

FROM: Sabrina Anderson, Planning and Programming Manager

SUBJECT: VMP/State/36th Concept Design February 13, 2013 Work Session ______Executive Summary Alternative 9, a Partial Median U-Turn design is the preferred alternative of the project team. The evaluation matrix for the top five designs, the 20 preliminary alternate evaluation matrix, and basic concept plans for the final five designs are attached for your review. The State Street Transit and Traffic Operations Plan (TTOP), adopted by ACHD and partner jurisdictions, recognizes rebuilding the State/Veterans Memorial Parkway (VMP) intersection is a critical component for the corridor to operate safely and efficiently. Extremely high volumes on both State Street and VMP necessitated alternative high capacity designs to be considered. This memo and work session is to present and seek feedback on the five final alternatives selected by the project team. Final design, right of way and construction is not currently in the Integrated Five Year Work Plan. Over twenty original concepts were evaluated for the ability to serve the demand for all modes at this intersection. Two stakeholder meetings and one PIM were held. In addition, an interactive web survey was conducted at the beginning of the project, and numerous one on one meetings were held to solicit input.

Project Description The purpose of the project is to improve motorist, pedestrian and bicycle safety while accommodating transit and future traffic volumes. An important objective is to integrate the design with surrounding land uses, specifically Veterans Memorial Park, Taft Elementary and existing neighborhoods and businesses. State/VMP is one of the busiest intersections in Ada County, where motorists can spend more than three minutes waiting during PM rush hour. During the TTOP process, there were many requests for pedestrian and bicycle improvements. This is a key project to maintain and improve traffic flow and safety on both State Street and VMP, as both are mobility arterials connecting the valley. The concept design utilizes the eventual 7-lane section on State Street, including HOV/Transit lanes. It also designed for the best fit cross section on State Street of 120 feet of right of way.

Number of Lanes Average Daily

VMP State Street Traffic Volume

Existing 32,000 36,000 veh/day 2- up to 15,500

Volumes: vehicles/day 3- 15,000 – 20,000

Future (2035): 39,000 47,000 veh/day 4/5 -20,000 – 40,000 vehicles/day 6/7- 40,000 – 55,000

______Ada County Highway District • 3775 Adams Street • Garden City, ID • 83714 • PH 208 387-6100 • FX 345-7650 • www.achdidaho.org

Currently the intersection operates at a LOS E during AM and LOS F during PM peak hours. The design standard is LOS D. The northbound left turn movement is also one of the highest in Ada County. As adopted by the State Street TTOP, State Street is envisioned as a transit corridor with increased regional, express and local bus service with High Occupancy Vehicle (HOV) lanes. HOV lanes are typically dedicated for buses, carpools, vanpools, motorcycles, emergency vehicles and right turning vehicles. HOV lanes help move traffic through congested areas resulting in time savings and improved air quality. HOV will operate in the curbside lanes on State Street.

Alternative Development Methodology Twenty-two potential solutions were considered. The team then analyzed critical traffic movements, physical constraints, and existing roadway network in the vicinity. Five key design elements were evaluated and fatal flaws identified. Attached is the screening matrix used to evaluate the preliminary intersection alternatives. At grade and grade separated intersections were both considered. At grade options evaluated included a Continuous Flow Intersection (CFI), three lane roundabout, quadrant intersections and a through-about. Grade separated designs included a fly over/under and a Single-Point Urban Intersection (SPUI). Designs not moving forward in the process either could not handle the projected traffic or ranked poorly in one or more of the design criteria. The attached rating matrix was developed to help evaluate the final five alternatives including evaluation results of design elements, stakeholder input and PIM comments.

Left turn movements use much of the green time at intersections. By removing, or re-directing, left turn movements to eliminate traffic signal phases, intersection operations can be improved. Therefore many of the alternatives developed impact the key left turn movements. The two critical vehicle movements are the right turns from State onto VMP during the AM peak and the left turn from VMP onto State during the PM peak. Alternatives were developed to accommodate the large northbound left-turns by removing the northbound left- turn movement from the main intersection, removing the southbound opposing phases, and/or removing the eastbound and westbound left-turn phases.

Five Alternatives Selected by the Project Team: 1. No Build - existing intersection used as a comparison alternative for potential federal aid. 3. Conventional - three lanes (one HOV/transit) for EB and WB thru lanes. EB, WB, NB and SB right turn lanes. EB, WB and SB dual left turn lanes. Three lanes for the NB left turn movement from NB VMP to WB on State Street. At grade pedestrian/bicycle crossings are maintained on all four intersection legs and three two-stage pedestrian/bicycle crossings have been added west of the intersection at Arthur Street, on Clover Street east of the intersection, and at VMP at Glendale. 9. Partial Median U-Turn - utilizes median U-turns for EB and WB left turns. Three lanes (one HOV/transit) for EB and WB thru lanes. EB, WB, NB and SB right turn lanes. Three lanes for the NB left turn movement from NB VMP to WB on State Street. At grade pedestrian/bicycle crossings are maintained on all four intersection legs and three two-stage pedestrian/bicycle crossings have been added west of the intersection at Arthur Street, on Clover Street east of the intersection, and on VMP at Glendale. 14. Partial Couplet – Two/three lanes of one-way travel for NB and SB traffic. Three lanes (one HOV/transit) for EB and WB thru lanes. Three left turns from VMP northbound to State Street westbound. Southbound vehicles on State Street turn south at a signalized intersection at Mercer, proceed on Mercer to VMP. Southbound traffic on 36th is diverted north of the intersection to Anderson Street, crossing State to Mercer with a signal. At grade pedestrian/bicycle crossings are maintained at State/VMP except on the westside of the intersection and added at the Mercer/State signal. A two- stage pedestrian crossing is added at Clover on State Street and a one-stage pedestrian crossing is added at the Mercer/VMP intersection. 20. Partial Median U-Turn with Partial CFI - utilizes the same intersection improvements as Alternative 9, replacing the three NB left turn lanes with a CFI and removing the at grade pedestrian crossing on the west side of the State/VMP signal.

Public Involvement: An interactive website survey was conducted in June and July of 2012. We received 114 comments. Pedestrian and bicycle related themes included requests for improving pedestrian and bicycle access, consideration of a pedestrian over or underpass, notation of high pedestrian activity between 35th and 36th Streets, requests for a bicycle lane on State Street and concern over bicycle conflicts with right turning vehicles. Transit related comments included requests to improve bus facilities including shelters and pullouts and recognition the intersection should serve all modes. Traffic related comments included requests to install a southbound right turn lane, concerns over red light running and high speeds at the intersection, concerns related to Anderson Street becoming a shortcut, and emphasizing the difficulty in making left-turns from side streets and driveways. A Public Involvement Meeting was held on November 15, 2012, after intersection options were technically evaluated. 19 written comments were received. Public was asked to rank the evaluation criteria to assist the project team with potential weighting of the design elements. The most important criteria to the public in order were vehicle delay, pedestrian bicycle elements and benefit/cost ratio. Alternative 9 (Partial Median U-Turn) received the highest number one votes. Alternative 14 (Partial Couplet) received the highest second place votes.

Stakeholder Involvement: Stakeholders meetings were held on September 6, 2012 and October 16, 2012 to discuss the alternatives and receive input. 26 stakeholders were invited including VRT, Albertsons, and the Boise School District. Businesses were invited by going door to door. Results from the survey were shared, and videos were presented illustrating the intersection concepts. Albertsons has provided a letter indicating Alternative 3 (Conventional) is their preferred alternative. In subsequent discussions, one of their concerns is restricting left turn movements at their site onto 36th. After review, modifications are possible to provide options for this movement under the other alternatives. Boise School District has not officially indicated a preference for an alternative, but expressed concerned about the impact many of the options have on Taft Elementary and bus drop off options. The School District did request a connection of 38th Street to the back of Taft Elementary school, which would allow buses to route to that location and away from 36thStreet and Anderson Street. VRT has not indicated a preference, however they expressed a preference for stop locations to be on the far side of signalized intersections to best utilize transit signal priority, recognizing with existing land uses this may not be possible on all approaches. Specific locations of bus pullouts will be determined at the design phase considering feasibility of right of way acquisition.

Evaluation Criteria The original 22 concepts were screened for how well they would perform for pedestrian and bicycles, vehicles, land use, and cost. Ten alternatives without fatal flaws were selected to continue to a more detailed evaluation. Five alternatives were then chosen for detailed traffic analysis. Criteria included: Pedestrian and Bicycle- facility connectivity, crossing opportunities and crossing distance. Pedestrian and bicycle exposure, future accommodations, crossing phases, number of mid-block crossings and cycle length were all evaluated. Transit- stop locations and utilization of HOV lanes Vehicles- vehicle delay. Existing and 2035 forecasted PM peak hour traffic was evaluated in VISSIM. VISSIM simulation model was needed to quantify traffic operations at multiple intersections. Safety was evaluated for driver expectation related to conventional left turns and out of directional travel. Potential crash severity was evaluated as median u-turns generally are safer than conventional options Land Use- redevelopment potential, access, and neighborhood compatibility Project Cost- estimated right of way and construction costs Benefit/Cost- benefit of fuel savings and reduced user delay over the 20 year design period versus estimated project cost

Different weighting of the design elements was reviewed for the final five alternatives, including a pedestrian /bike emphasis, and public ranking of design element. Under all scenarios, Alternative 9 ranked the highest.

Federal Aid Consideration FHWA has recommended if this project is to be considered for federal funds that a single preferred alternative not be adopted due to the need to conduct an environmental alternative analysis. As part of this scope of work, an environmental scan was completed, but work was not done to the detail required for a full federal environmental analysis. The teams preferred alternative, Alternative 9, has an estimated right of way and construction cost of $6.9 to $8.5M. Staff recommends not pursuing federal funds for this project and to prioritize and program project phases in the local program. If the Commission wishes to leave open the possibility for this project to be funded by federal funds in the future, it would be beneficial to rank the top three alternatives and not select one preferred alternative.

Two-Stage Pedestrian Crossing: Many of the alternatives under consideration utilized the addition of three, two-stage pedestrian crossings generally located at Arthur, Clover, and Glendale. This type of signalized pedestrian crossing is safer for pedestrians and bicyclists than a traditional crosswalk, as it includes a median refuge to help users see oncoming traffic and reduces vehicle delay.

Stage One Stage Two

City of Boise City staff has participated on the project team. The concept design alternatives were presented in part to the City Council on January 15th. Boise City Council has not weighed in on a preferred alternative. Many of the issues raised by Council have been addressed through the project process. A tentative second work session has been scheduled for the end of February to clarify issues raised. Specific issues included: concern the work did not give consideration to substantial redevelopment, confusion over how a partial median u-turn can reduce delay, waiting to see how the 30th Street traffic impacts patterns in the intersection, disagreement with the traffic projections used and concern the alternatives don’t do enough to accommodate other modes besides vehicles and focus too much instead on the motorist travel delay savings.

Next Steps Late February- Additional outreach meeting to Boise City Council February/March- Return to ACHD Commission for selection of Preferred Alternative

Attachment(s): Evaluation Criteria and Scores Plan sheets for 5 Alternatives Rating Matrix STATE STREET/VMP/36TH STREET INTERSECTION CONCEPT DESIGN

Screening Matrix for Determining Preliminary Intersection Alternatives

Pedestrians, Bicyclists and Vehicles TransitLand Use Safety Cost Identified by Rating Expected Expected Project Team for Expected Expected Overall Land Overall Safety Expected Further Analysis No. Alternative Type Graphic Description Demand Served Overall Impact Use Impact Improvement Project Cost (=yes, =no) Comments Symbol General Cost

1No‐Build At‐Grade Existing L , E É '  Required for Federal‐Aid Excellent None Although identified as a separate alternative in the ' No‐Build Plus Pedestrian Existing plus enhancements (possibly sidewalk extensions, mid‐block scope, the Project Team agreed to treat pedestrian 2 At‐Grade Enhancements crossings or a grade separated crossing). L , E , E  enhancements as an interim measure that will be identified later in the concept design.

Conventional signalized intersection with three through lanes on State 3 Conventional At‐Grade (2 vehicle, 1 Transit/HOV) plus bike lanes. No additional through lanes Required per Scope Good Low on VMP or 36th. É EE, E  E

Fatal flaw. SIDRA analysis of 2012 PM peak hour traffic Modern roundabout with three circulating lanes (2 vehicle, 1 4Three‐Lane Roundabout (RAB) At‐Grade results in LOS F, volume‐to‐capacity ratio greater than Fair Moderate Transit/HOV). L E É 'E 1.8 and queues exceeding 2,700 feet. ,

Forward Jughandle, Any Left‐turn Forward jughandle routes left‐turn vehicles to the right to a secondary Fatal flaw. Similar to quadrant concepts. Used in 5 At‐Grade Poor High Lane intersection. The secondary intersection would require signalization. ,,É , É  Alternative Nos. 16 and 17. É

Reverse jughandle routes NB left‐turn vehicles through the primary Fatal flaw. Reverse Jughandle for NB left turn would intersection to a loop lane and then back through the primary 6 Reverse Jughandle, NBLT At‐Grade negatively impact pedestrians, bicyclists and Bad Very High intersection. A bypass lane or quadrant roadway would be required LLÉÉÉ transit/HOV lane. L around the loop lane for right‐turn vehicles.

In a CFI, left‐turn vehicles cross over opposing through traffic prior to entering the intersection. This allows the left‐turn vehicles to proceed Fatal flaw. Good for accommodating traffic demand Continuous Flow Intersection (CFI), through the intersection with the corresponding through vehicles, 7 At‐Grade but poor pedestrian accommodations. Also, bad for Parallel Flow Intersection (PFI) requiring only a two‐phase signal at the primary intersection. A E ÉL,, business access and transit accommodations. system of five coordinated traffic signals is required. The PFI is a patented design that is similar to the CFI.

Fatal flaw. NB left‐turn volume is too large to route All left‐turn vehicles are re‐routed to signalized median U‐turn through the intersection twice. Synchro analysis of Full Median U‐Turn Intersection 8 At‐Grade intersections located 600' to 800' downstream on State Street. The 2012 PM peak hour traffic results in LOS F, volume‐to‐ (MUT) primary intersection operates with two phases. É E ,,E  capacity ratio greater than 1.3 and unstable queues that exceed capacity.

Six Mile Engineering, PA July 30, 2012 Page 1 of 3 STATE STREET/VMP/36TH STREET INTERSECTION CONCEPT DESIGN

Screening Matrix for Determining Preliminary Intersection Alternatives

EB and WB left‐turn vehicles are re‐routed to signalized median U‐turn Partial Median U‐Turn Intersection intersections located 600' to 800' downstream on State Street. Direct Good for pedestrians and allows for midblock 'pelican' 9 At‐Grade Excellent None (MUT), NB and SB left‐turn movements are allowed. The primary intersection , E ,,E  pedestrian crossings at MUT intersections. ' operates with three phases.

The NB and SB movements would be separated into two signalized T‐ Split T‐intersection alternative is very similar to 10 Split T‐Intersection At‐Grade intersections. The existing north leg (36th Street) would be closed to Alternative 18 (Quadrant 4) and but is expected to have Good Low vehicle traffic and relocated to N. Anderson. , É ,,É  poorer pedestrian and bicycle accommodations. E

All vehicles from VMP and 36th Street are re‐routed to the major Fatal flaw. Synchro analysis of 2012 PM peak hour street via a right‐turn movement to a median U‐turn intersection, with 11 Partial Superstreet At‐Grade traffic results in LOS E, volume‐to‐capacity ratio greater Fair Moderate the exception of the NBLT vehicles. Direct EB and WB left turns from ÉÉÉ, E  than 1.1 and unstable queues that exceed capacity. , State Street are allowed. For this alternative, the NB left turn is direct.

Fatal flaw. Through‐about operates similar to both a State Street through movements are unchanged, all other movements superstreet and roundabout and is not expected to 12 Through‐About At‐Grade are re‐routed to a counterclockwise circulating roundabout. Signalized Poor High accommodate the large NB left‐turn movement control is needed to stop State Street through movements. É , É EE É effectively.

Expected to accommodate vehicle, pedestrian and Both State Street and VMP/36th are converted to two one‐way 13 Full Couplet At‐Grade bicycle traffic well, although very large right‐of‐way and Bad Very High roadways forming a system of four two‐phase signalized intersections. EEEEL  construction costs are expected. L

Expected to accommodates vehicle, pedestrian and VMP and 36th are converted to two one‐way roadways forming a 14 Partial Couplet At‐Grade bicycle traffic well, although large right‐of‐way and system of two three‐phase signalized intersections. , EEEÉ  construction costs are expected.

Expected to accommodates vehicles, pedestrians, Left‐turn vehicles are removed from the primary intersection by using bicyclists and transit relatively well; however, large an additional roadway in one or more quadrants. Mercer quadrant re‐ 15 Quadrant 1At‐Grade right‐of‐way and construction costs are expected. Mid‐ routes NBLT and EBRT movements. N. Anderson quadrant re‐routes , EE, É  block pedestrian crossings can be allowed at the SBLT and WBRT movements. quadrant intersections.

Six Mile Engineering, PA July 30, 2012 Page 2 of 3 STATE STREET/VMP/36TH STREET INTERSECTION CONCEPT DESIGN

Screening Matrix for Determining Preliminary Intersection Alternatives

Left‐turn vehicles are removed from the primary intersection by using The vehicle operations are expected to be poor due to an additional roadway in one or more quadrants. Anderson the close distance of the Anderson quadrant Quadrant 2 plus Forward 16 At‐Grade quadrant/jughandle re‐routes all SB movements and the EBLT intersection to the primary intersection. Particularly in Excellent None Jughandle movement. Veterans Park quadrant re‐routes WBLT and NBRT É E ,,É  the AM peak hour, EB queues are expected to be ' movements. unsatisfactorily large.

The vehicle operations are expected to be poor due to Quadrant 3 plus Forward Left‐turn vehicles are removed from the primary intersection by using the close distance of the Anderson quadrant 17 Jughandle At‐Grade an additional roadway in one or more quadrants. Anderson intersection to the primary intersection. Particularly in Good Low quadrant/jughandle re‐routes all SB movements. É ,,,É  the AM peak hour, EB queues are expected to be E unsatisfactorily large.

Expected to accommodates vehicles, pedestrians, Left‐turn vehicles are removed from the primary intersection by using bicyclists and transit relatively well; however, large Quadrant 4 18 At‐Grade an additional roadway in one or more quadrants. Anderson right‐of‐way and construction costs are expected. Mid‐ Fair Moderate SBLT and SBTH (N. Anderson) quadrant/jughandle re‐routes all SB movements. ,,,,É  block pedestrian crossings can be allowed at the , quadrant intersections.

Left‐turn vehicles are removed from the primary intersection by using Expected to accommodates vehicles, pedestrians, an additional roadway in one or more quadrants. Anderson quadrant bicyclists and transit relatively well; however, large re‐routes all SBLT and WBRT movements. Mercer quadrant re‐routes 19 Quadrant 5 plus Partial MUT At‐Grade right‐of‐way and construction costs are expected. Mid‐ Poor High NBLT and EBRT movements. EBLT and WBLT movements are re‐routed , E ,,É  block pedestrian crossings can be allowed at the É using median U‐turn intersections on State Street. The primary quadrant and MUT intersections. intersection operates with two phases.

Expected to accommodates vehicles, pedestrians, NB left‐turn movement is re‐routed before the primary intersection bicyclists and transit relatively well; and have less right‐ using CFI concepts. The remaining left‐turn movements are re‐routed 20 Partial CFI plus Partial MUT At‐Grade of‐way and construction costs compared to the Bad Very High using median U‐turn intersections on State Street. The primary , E ,,,  quadrant alternatives.. Mid‐block pedestrian crossings L intersection is operates with two phases. can be installed at MUT and CFI intersections.

Grade The construction cost versus the operational benefit is 21 Fly‐over/Fly‐under NB left‐turn movement is grade separated. Separated , E ,,L  less preferable than the SPUI alternative.

Previous analysis has shown that this alternative State Street through movements are uninterrupted via grade Single‐Point Urban Intersection Grade operates relatively well for vehicle traffic; however, it 22 separation. A traffic signal controls VMP and 36th through traffic and (SPUI) Separated requires large construction costs and accommodates all left‐turn traffic. ' ÉÉE L  pedestrians, bicyclists and transit poorly.

Six Mile Engineering, PA July 30, 2012 Page 3 of 3 Alternative Evaluation

• Sev en Ev aluation Criteria – Three qualitative, four quantitative

Alternative 1 - Alternative 20 No-Build Alternative 9 - Alternative 14 - Partial (Existing Alternative 3 - Partial Median - Partial Median U-Turn Criteria Conditions) Conventional U-Turn Couplet and Partial CFI Pedestrians and Bad Fair Good Good Fair Bicyclists Qualitative Transit Bad Good Good Excellent Good Land Use Fair Fair Good Fair Fair Vehicle Delay (s) 146 76 54 52 40 Cost (millions) 0 7.6 7.7 11.6 9.1 Benefit/Cost Ratio 0 5.6 7.3 5.1 7.4 Quantitative (rank) (5) (3) (2) (4) (1)

Public Input of 6 9 20 14 5 Preferred Alternative (4) (3) (1) (2) (5) (rank)

State Street-VMP-36th Street January 8, 2013 Intersection Concept Design 24 Alternative Evaluation

• Equal Weighting

Alternative 20 Alternative 1 Alternative 9 - Partial Weight - No-Build Alternative 3 - Partial Alternative 14 Median U- (10 total (Existing - Median U- - Partial Turn and Criteria points) Conditions) Conventional Turn Couplet Partial CFI Pedestrians and 1.43 1.43 3.33 5.24 5.24 3.33 Bicyclists Transit 1.43 1.43 5.24 5.24 7.14 5.24 Land Use 1.43 3.33 3.33 5.24 3.33 3.33 Vehicle Delay 1.43 1.43 5.20 6.39 6.50 7.14 Cost 1.43 7.14 3.40 3.35 1.43 2.66 Benefit/Cost Ratio 1.43 1.43 5.75 7.07 5.37 7.14 Public Input of 1.43 1.81 2.95 7.14 4.86 1.43 Preferred Alternative Total Points 18.0 29.2 39.7 33.9 30.3 Rank 54123

State Street-VMP-36th Street January 8, 2013 Intersection Concept Design 27