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Twelfth Street Vacate SchoolsMEMORANDUM November 9, 2004 TO: The Honorable Mayor and City Council Members FROM: Michael C. Van Milligen, City Manager SUBJECT: Vacating Petition - 12th Street between Central Avenue and White Street and the Adjacent Alley from 11th Street to 13th Street A request has been received from the Dubuque Community School District to vacate and convey to the District part of 1 ih Street between Central Avenue and White Street and the adjacent alley from 11 th Street to 13th Street. Public utilities exist on the area to be vacated and these utilities will be relocated at the expense of the Dubuque Community School District. A traffic report was prepared by WHKS & Company to study the closing of 12th Street from White Street to Central Avenue. This study evaluated the impact of modified traffic patterns due to this closure. The increased traffic at the existing unsignalized intersections on 13th Street at Central Avenue and White Street reduces the capacity and level of service at these intersections from Level of Service "B" and "C" to Level of Service "C" and "D." This study also contacted area businesses regarding this change. The Engineering Department commissioned a peer review of the report by Howard R. Green Company. Given the significance of these recommendations, a meeting was held on Thursday, November 4, to discuss the project. In attendance were 19 individuals representing the Iowa DOT, the School District, the City of Dubuque, Howard R. Green, the school architect, and WHKS. Based upon this meeting, all parties concurred that the traffic study recommendations would be modified to reflect focusing pedestrian activity to 1 ih at White and Central Avenue. Additional site details would also be made to accommodate pedestrian flow on-site and to minimize conflicts between children and vehicles. Further clarification would be made as to improved school crossing signage, markings, or other higher visibility options to alert motorists when children are crossing these busy roadways. Acting Public Works Director/City Engineer Gus Psihoyos recommends that part of 1 ih Street between Central Avenue and White Street and the adjacent alley from 11th Street to 13th Street in the City of Dubuque be vacated, that the purchase price be established at the cost of relocation of all utilities (including engineering costs) and platting, publication and filing fees. It is further recommended that a public hearing be set for December 6, 2004. I concur with the recommendation and respectfully request Mayor and City Council approval. Michael C. Van Milligen MCVM/jh Attachment cc: Barry Lindahl, Corporation Counsel Cindy Steinhauser, Assistant City Manager Gus Psihoyos, Acting Public Works Director/City Engineer MEMORANDUM November 9, 2004 TO: Michael C. Van Milligen, City Manager FROM: Gus Psihoyos, Acting Public Works Director SUBJECT: Vacating Petition - 1ih Street between Central Avenue and White Street and the Adjacent Alley from 11 th Street to 13th Street INTRODUCTION This is in response to a May 13, 2004 request from the Dubuque Community School District for the vacating and conveyance to the District of part of 12 Street between Central Avenue and White Street and the adjacent alley from 11th Street to 13th Street. DISCUSSION The attached plat shows the proposed vacated area from 1 ih Street between Central Avenue and White Street and the adjacent alley from 11th Street to 13th Street. The abutting properties are owned or in the process of being purchased by the Dubuque Community School District. At the time of this writing, all but four (4) properties have been acquired. The area to be vacated is divided into three lots numbered Lot A and Lot B of City Lot 445 and Lot A of City Lot 446 in the City of Dubuque, Dubuque County, Iowa. These lots are an existing 64-foot wide street and 20-foot wide alley on which public utilities exist. According to plans being reviewed by the Engineering Department, these utilities will be relocated at the expense of the Dubuque Community School District. The Engineering Department is coordinating the relocation of existing City utilities as they relate to the development of the site for the proposed new Prescott School. Straka Johnson Architects and MSA Professional Services are working with other utilities on relocation plans. Performance and maintenance bonds will be required by the City from the contractor performing the utility relocation work. The street and utilities are to remain in place to serve the school and remaining tenants until actual construction begins in May, 2005. The purchase price has been established at the cost of utility relocations and the cost of platting, publication, and filing fees. The City will maintain the existing street, sewer and water lines until the Dubuque Community School District takes possession of the property. A traffic report was prepared by WHKS & Company to study the closing of 12th Street from White Street to Central Avenue. This study evaluated the impact of modified traffic patterns due to this closure. The increased traffic at the existing unsignalized intersections on 13th Street at Central Avenue and White Street reduces the capacity and level of service at these intersections from Level of Service "B" and "C" to Level of Service "C" and "D". This study also contacted area businesses regarding this change. Given that this project impacts two busy corridors downtown and involves an increase in school-age pedestrians, the Engineering Department secured the services of Neal Hawkins from Howard R. Green Company to provide a peer review of the WHKS & Co. report. Mr. Hawkins provided an alternative strategy to deal with traffic and pedestrian movements in the area as opposed to what was proposed in the traffic report. His recommendations focused on leaving 1ih Street at White and at Central as traffic signal controlled and to focus school children crossing White and Central at these locations. Further recommendations were made regarding site access and minimizing vehicle and pedestrian conflicts. Given the significance of these recommendations, a meeting was held on Thursday, November 4, to discuss the project. In attendance were 19 individuals representing the Iowa DOT, the School District, the City of Dubuque, Howard R. Green, the school architect, and WHKS. Based upon this meeting, all parties concurred that the traffic study recommendations would be modified to reflect focusing pedestrian activity to 1ih at White and Central Avenue. Additional site details would also be made to accommodate pedestrian flow on-site and to minimize conflicts between children and vehicles. Further clarification would be made as to improved school crossing signage, markings, or other higher visibility options to alert motorists when children are crossing these busy roadways. RECOMMENDATION The City has no plans for the utilization of the proposed vacated area of 1 ih Street between Central Avenue and White Street and the adjacent alley from 11th Street to 13th Street after the public utilities have been relocated as required for the construction of the new Prescott School. I recommend that the part of 1ih Street between Central Avenue and White Street and the adjacent alley from 11 th Street to 13th Street in the City of Dubuque, Dubuque County, Iowa, shown on the attached plat be vacated, and that a public hearing be set for the disposition of the City's interest in those parts for December 6, 2004. I would further recommend that the purchase price be established at the cost of relocation of all utilities (including engineering costs) and platting, publication, and filing fees. ACTION TO BE TAKEN The recommendation of the City Manager should be approved and a public hearing should be set for the disposal of the City's interest in the property by adoption of the enclosed resolutions and ordinance. Prepared by Ronald J. Turner, PLS cc: Dubuque Community School District May 13, 2004 Honorable Mayor Terrance M. Duggan and Members of the City Council City of Dubuque City Hall 50 West 13" Street Dubuque, Iowa 52001-4845 Dear Mayor Duggan and Members of the City Council: The Dubuque Community School District has selected the site for a new downtown elementary school. The site is te!Tned "Site #1" and is bounded on the south by ll" Street, on the north by 13" Street, on the west by Central A venue and on the east by White Street. A diagram of the site is enclosed. The effective use of Site #1 for a modem elementary school requires a minimum of two blocks of contiguous property, Additional parking outside of the two-block area may also be required. In addition to the building, the site will include turnout lanes for bus traffic, student drop-off and pick-up points, parking lots and playground areas. It is clear that dividing the property by a street or an alley would make the site inappropriate for a new elementary school. We have contacted the City Engineering Department and they indicated that existing utilities may need to be relocated and/or easements put in place. We also understand that the vacated area would need to be surveyed and platted at our expense. plus we would pay for publication and filing fees. This letter is a formal District request that the City Council agree to vacate 12" Street between Central Avenue and White Street and the alleys between ll" Street and 13" Street between Central Avenue and White Street as a part of the District's acquisition of all property in Site #1. The City Engineering Department has indicated they would not object to vacation of those particular streets and alleys. Please see the attached letter. The architect for this project is the firm of Straka Johnson Architects, P.C. They are currently under District contract to design the building but have not yet deteITnined the location of the building footprint. Thank you for your consideration of this request. We will be pleased to work with your staff to provide any additional info!Tnation required. Sincerely, Douglas J. Horstmann Board President John L. Burgart, Superintendent of Schools jrns RESOLUTION NO. 430-04 RESOLUTION OF INTENT TO VACATE AND DISPOSE OF CITY INTEREST IN PART OF 1ih STREET BETWEEN CENTRAL AVENUE AND WHITE STREET AND THE ADJACENT ALLEY FROM 11TH STREET TO 13TH STREET IN THE CITY OF DUBUQUE, DUBUQUE COUNTY. IOWA Whereas, the Dubuque Community School District has requested the vacating and conveyance to the District part of 1 zth Street between Central Avenue and White Street and the adjacent alley from 11 th Street to 13th Street; and Whereas, MSA Professional Services has prepared and submitted to the City Council a plat showing the proposed vacated part of 1 zth Street between Central Avenue and White Street and the adjacent alley from 11th Street to 13th Street and has assigned lot numbers thereto, which hereinafter shall be known and described as Lot A and Lot B of City Lot 445 and Lot A of City Lot 446 in the City of Dubuque, Dubuque County, Iowa should be approved. NOW THEREFORE, BE IT RESOLVED BY THE CITY COUNCIL OF THE CITY OF DUBUQUE, IOWA: Section 1. That the City of Dubuque intends to vacate and dispose of its interest in Lot A and Lot B of City Lot 445 and Lot A of City Lot 446 in the City of Dubuque, Dubuque County, Iowa. Section 2. That the relocation of all utilities affected by the vacating of 12th Street between Central Avenue and White Street and the adjacent alley from 11 th to 13th Street be engineered, constructed, and inspected at the expense of the Dubuque Community School District in accordance with the City of Dubuque Standards and Specifications. Section 3. That the conveyance of Lot A and Lot B of City Lot 445 and Lot A of City Lot 446 in the City of Dubuque, Dubuque County, Iowa to the Dubuque Community School District be contingent upon the payment by the Dubuque Community School District of platting, publication and filing fees, and the agreement of the School District to pay for the cost of the engineering, construction, and inspection of the relocation of all utilities affected by the vacating of 12th Street between Central Avenue and White Street and the adjacent alley from 11th to 13th Street. Passed, approved and adopted this 15th day of November ,2004. Terrance M. Duggan, Mayor Attest: Jeanne F. Schneider, City Clerk Prepared by: Ronald J. Turner. City of Dubuque. 50 W. 13th Street, Oubuque, Iowa (563) 589-4270 RESOLUTION NO. APPROVING A PLAT OF PROPOSED VACATED 12'h STREET BETWEEN CENTRAL AVENUE AND WHITE STREET AND THE ADJACENT ALLEY FROM 11TH STREET TO 13TH STREET Whereas, there has been presented to the City Council of the City of Dubuque, Iowa, a plat dated the 8th day of November, 2004, a copy of which is attached hereto, prepared by MSA Professional Services, describing the proposed vacated 12th Street between Central Avenue and White Street and the adjacent alley from 11 th Street to 13th Street; and Whereas, said plat conforms to the laws and statutes pertaining thereto. NOW, THEREFORE, BE IT RESOLVED BY THE CITY COUNCIL OF THE CITY OF DUBUQUE, IOWA: Section 1. That the plat dated the 8th day of November, 2004, prepared by MSA Professional Services, relative to the real estate hereinabove described be and the same is hereby approved, and the Mayor and City Clerk be and they are hereby authorized and directed to execute said plat for and on behalf of the City of Dubuque, Iowa. Section 2. That the City Clerk be and is hereby authorized and directed to file said plat and certified copy of this resolution in the office of the Recorder in and for Dubuque County, Iowa. Passed, approved and adopted this day of 2004. Terrance M. Duggan, Mayor Attest Jeanne F. Schneider, CMC, City Clerk ORDINANCE NO. VACATING 12th STREET BETWEEN CENTRAL AVENUE AND WHITE STREET AND THE ADJACENT ALLEY FROM 11TH STREET TO 13TH STREET Whereas, Dubuque Community School District has requested the vacating of 12th Street between Central Avenue and White Street and the adjacent alley from 11 th Street to 13th Street; and Whereas, MSA Professional Services has prepared and submitted to the City Council a plat a copy of which is attached hereto showing the proposed vacated 1 ih Street between Central Avenue and White Street and the adjacent alley from 11 th Street to 13th Street and has assigned lot numbers thereto, which hereinafter shall be known and described as Lot A and Lot B of City Lot 445 and Lot A of City Lot 446, in the City of Dubuque, Dubuque County, Iowa; and Whereas, the City Council of Dubuque, Iowa has determined that part of 1ih Street between Central Avenue and White Street and the adjacent alley from 11th Street to 13th Street is no longer required for public use, that existing utilities will be relocated at the expense of the Dubuque Community Schools and that the vacating of said 12th Street between Central Avenue and White Street and the adjacent alley from 11th Street to 13th Street known as Lot A and Lot B of City Lot 445 and Lot A of City Lot 446, in the City of Dubuque, Dubuque County, Iowa should be approved. NOW THEREFORE, BE IT RESOLVED BY THE CITY COUNCIL OF THE CITY OF DUBUQUE, IOWA: Section 1. That the real estate described as Lot A and Lot B of City Lot 445 and Lot A of City Lot 446 in the City of Dubuque, Dubuque County, Iowa, be and the same is hereby vacated. Passed, approved and adopted this - day of, 2004. Terrance M. Duggan, Mayor Attest: Jeanne F. Schneider, CMC, City Clerk Prepared by: Ronald J. Turner. City of Dubuque, 50 W, 13th Street, Oubuque, Iowa (563) 589-4270 RESOLUTION NO. DISPOSING OF CITY INTEREST IN VACATED 12th STREET BETWEEN CENTRAL AVENUE AND WHITE STREET AND THE ADJACENT ALLEY FROM 11TH STREET TO 13TH STREET IN THE CITY OF DUBUQUE, DUBUQUE COUNTY, IOWA Whereas, pursuant to resolution and published notice of time and place of hearing, published in the Telegraph Herald, a newspaper of general circulation published in the City of Dubuque, Iowa on this - day of , 2004, the City Council of the City of Dubuque, Iowa met on the day of , 2004, at 6:30 p.m. in the Public Library Auditorium, 360 West 11 Street, Dubuque, Dubuque County, Iowa to consider the proposal for the disposition of real estate described as: Lot A and Lot B of City Lot 445 and Lot A of City Lot 446 in the City of Dubuque, Dubuque County, Iowa Whereas, the City Council of the City of Dubuque, Iowa overruled any and all objections, oral or written to the proposal to sell such real estate, except for easement as noted. NOW, THEREFORE, BE IT RESOLVED BY THE CITY COUNCIL OF THE CITY OF DUBUQUE, IOWA: Section 1. That the disposition of City of Dubuque real property described as Lot A and Lot B of City Lot 445 and Lot A of City Lot 446 in the City of Dubuque, Iowa to the Dubuque Community School District be and the same is hereby approved for the costs of platting, publication, and filing fees and the costs of engineering, construction, and inspection of the relocation of all utilities affected by the vacating of 12th Street between Central Avenue and White Street and the adjacent alley from 11th Street to 13th Street. Conveyance shall be by Quit Claim Deed. Section 2. That the relocation of all utilities affected by the vacating of 1ih Street between Central Avenue and White Street and the adjacent alley from 11th Street to 13th Street, to be engineered, constructed, and inspected at the expense of the Dubuque Community School District, shall be in accordance with City of Dubuque Standards and Specifications. Section 3 That the Mayor be authorized and directed to execute a Quit Claim Deed, and the City Clerk be and is hereby authorized and directed to deliver said deed of conveyance to the Dubuque Community School District upon payment of all costs referred to herein by the Dubuque Community School District. Section 4. That the City Clerk be and is hereby authorized and directed to record a certified copy of this resolution in the offices of the City Assessor, Dubuque County Recorder and Dubuque County Auditor. Passed, approved and adopted this day of 2004. Terrance M. Duggan, Mayor Attest: Jeanne F. Schneider, CMC, City Clerk ACCEPTANCE OF RESOLUTION NO. I, the undersigned, , representing the Dubuque Community School District, having read the terms and conditions of the Resolution No. _-04, and being familiar with the conditions thereof, hereby accept this same and agree to the conditions required therein. Dated in Dubuque, Iowa, this day of 2004. By: October 20th, 2004 Gus N. Psihoyos, P.E. City Engineer City of Dubuque Iowa 50 W 13th St Dubuque, IA 52001 RE: Peer Review for: Traffic Impact Study of the Proposed Closure of l2th Street (White St to Central Ave) Dear Mr. Psihoyos: It is a pleasure to be able to review the work of fellow engineers in a supportive effort to achieve the highest level of safety and capacity within the downtown core of the City of Dubuque. This effort is never more critical that when planning for schools where kids and busy parents all meet at extremely concentrated times and locations. This review and the comments which follow are from the perspective that we all appreciate a second opinion, if done professionally'-and is also based on the experience in dealing with downtown schools which are challenging environments for a range of issues including vehicle access (pick-up/drop off), parking, school ped crossing/signage, sidewalks, traffic control, business loading zones, and problems associated with circulation given one-way streets. Accordingly, the following review comments are presented to the design team for consideration in the development of an outstanding design for this significant project. The comments that follow begin with detailed comments made through reviewing the document and end up with summary comments for consideration on the site. It has been a real pleasure providing this review and I commend WHKS for their efforts in preparing and organizing this info!Tnation. I would also be more than happy to discuss these comments via phone or possibly with the design team in person next week. Respectfully, Neal R. Hawkins, P.E. REPORT COMMENTS Page 1 11 This statement is surprising "The report does not address the impacts of the additional pedestrian or vehicular traffic generated by the proposed elementary school." It is unclear why this report would not address the impacts of the additional pedestrian or vehicular traffic generated by the proposed elementary school given that the proposed school improvement are the apparent reason 12'h Street is being closed and the primary focus is the new pedestrian and vehicular traffic impacts. U Clarify why the "capacity/LOS" study boundary differs from the "operational" study boundary. Figure 1 is unreadable. 1.3 The assumption that all redirected 12'h Street traffic will be assigned to 13th Street could be supported with some reasoning given the directionality of Central and West Ave. Page 2 2.2 Comment that additional concept plans exist. Do these concepts vary from Figure 2 in the circulation ofped/vehicles for site/adjacent intersections? Page 3 Figure 2 Notes heavy truck traffic on both Central and West Ave, what are these truck percentages? Does not show signals on l3<h Street which is different that the report findings. Circulation pattern provides on-site stacking and orients the child on the passenger side of the vehicle. This is also a long route for both Central and West traffic. No foot traffic is shown from the west or south (based on school provided information?). Will the turn radius for the school accommodate bus traffic turning off of 11 th Street? Page 4 J.J.,1 Consider commenting on existing ped crossing locations/accommodations including signage and pavement markings. What has been the ped/vehicle crash history in this six intersection area? Page 5 11. Traffic counts used for the study are weekday July 27(Tue) through Aug 4 (Wed), however, these mid- summer volumes may not reflect typical school conditions. Discussion of peak times with Appendix A evaluating peak hour from summarizing across all roadway locations. Consider identifying peak times based upon each intersection as noted below for 11m/Central. This check found that the highest flow for Central Ave, WB 11 th Street, and EB 11 th Streets were all during the noon time period. It is also important to note that the PM peak hour for a major roadway like Central Ave was in the case below found to be from 4-5pm versus the 3-4pm noted in the study. Consider noon period in analysis. Page 5 4.2.2 The assumptions made for turning distributions should be supported by some minimum field observation data as this could playa big role in capacity calculations. Spot checks would need to be made am, pm, and noon peak period. How does the 2 percent growth rate used compare with other downtown streets? Verify with some comparisons of DOT counts vs streets where new COttnts were available. Other portions of the City have seen wild variations in annual growth rates. Existing conditions on a school related study would usually consider details of existing pedestrian flow and crossing details. Appendix B found hard to follow given minimal explanation of what is being shown. 4.2.3 CuITently 100 students walk and 130 are bussed. Any issues with existing school parent pick up/drop off (how many are driven to school?)...is stacking a problem. 4.3.3 Does the school expect that the 3-51h grade kids will also be accompanied by an adult on their walk to school. What are the CUITent safe routes to school. Me there any crossing guards? Any expected issues with 300 kids walking to school (all from the northeast?). What intersections will the congregate on and bow will their crossing be facilitated? How will the site accommodate the 50 being dropped off am vs pm (by vehicles)? Fieure 3 Minor comments on aITOWS shown Illh St EB thru+right should be right only 12'h St EB thru+left should be left only Page 13 5.1 Comment that student traffic was assumed to be concentrated at 11th/White... what about other intersections like 13th/Wlrite? Appendix D HCM Analysis s~ot check for fITst scenarios #1-#6 #1 III/Central AM - Central Ave coded with exclusive SB Right turn lane which is not shown on Fig 3. Since SB~LOS D with this right lane what is it without? II th/White AM - No seconds for yellow clearance times? #2 #3 12/Central AM - SB Left and SB Right volumes are transposed in HCM. No yellow times. #4 12/Wlrite AM - No seconds for yellow clearance times? #5 l3/Central AM - SB Central coded with exclusive right not shown on Fig 3. #6 l3/White AM - Volumes incorrectly coded for Southbound movements. WB left coded with vol of 15 where cant make this mvrnt and EB Rt coded as well. Scenario's D7-D26 were not reviewed. Page 14 5.1 Cont'd Instead of using SOAP2k for timing optimization, consider using Synchro+SimTraffic as heavy 600+ vph flow along Central Ave and 2-300 vph flows along West Ave (consider impact of coordination). The impact oflrigher ped flows on arterial coordination should be considered. Page 15 5.2.1 Assumed that IllhlWhite meets waITants, use volumes collected and compare to MUTCD WaITants. Using WaITant 5 without any data collected doesn't lend support conclusion. What are existing gaps in the traffic stream? 5.2.2 Are 12'h Street crossings needed for peds vs removal? 5.2.3 Synchro+SimTraffic should be considered for analysis of peak hour queue particularly where a left turn such as westbound at 13th/Central is carrying additional school plus 12'h Street diverted traffic. SUMMARY COMMENTS Justification for changing traffic control needs supported with data. A signal at 13!White would create queue's which block the entrance to the school drop offlane from White. Avoid installation of signals that do not meet WaITants. Getting 300 kids from the main school entrance to the NW comer of II th/White requires them to mingle with all of the on-site exiting vehicles and two different exit driveways at the SE comer of the school site. Issue with kids leaving school to go northwest or west not addressed. Consider simplifying/cottcentrating kids crossing the busiest roadways (Central/White) two locations. Given that IZth is the center of the site, consider focusing ped traffic through site and to one side or the other of ]th St (work with school on which side). This being the only two locations to cross either Central or West, consider installation of higher levels of alert to motorists and possibly adult guards. Consider restricting crossing either Central or West at 11th or at 13th and leave 13th as stop control. As kids get further away from the school and more scattered out, perhaps not a good idea to have them cross these busy roadways. Provide tabletop or clear distinction for crossing path on-site where kids would walk to ] th StfW est and same for lZ/Central. This would also simpliJy the concentration of school crossing signage to two locations for these busiest roadways.. . drivers know these are concentrated school crossings and establish time of day based speed limit (only when kids there with flashers etc). Perhaps change the texture of the crosswalk across Central and West. Also helps focus enforcement if needed. Update HCM analysis as noted in spot check and consider evaluating the impacts to Central and West as arterials (using coordinated analysis tool). Consider queue for left turns impacted from closure of Ith Consider flexibility of site layout if higher percent of parentB want to drop kids off (post 9] I type of reaction) where would they be stacked up, hopefully not blocking the west lane of West Ave or the east lane of Central Ave circling around site. Parents from NE area dropping kids off must circle entire site (e.g. from l3/white) unless they enter the parking area for 45 cars and then turn into the aisle for the 35 car angle parking area. Since this has the potential for heavy use and northbound West Ave is also to have heavy use, given it is the only way to access the school from all other directions, there could be some conflict at this on-site point during peak times. Consider closing this connection between parking lots or altering these to not conflict head on. One option might be to leave the ability to enter the site from 13th (which makes sense) and change the angle of the parking lot connection to more ofa SE orientation. At the same time, pull the White St driveway further south so these vehicles are not heading towards each other. Consider options/drawbacks for this concept as big impact to parking. 2 Table of Contents Introduction and Executive Summary 1.1 1.2 1.3 Purpose of Report and Study Objectives Site Location Executive Summary Proposed Development 2.1 2.2 Off-site Development On-site Development 3 Area Conditions 3.1 Study Area 3.2 Study Area Land Use 3.3 Site Accessibility 4 Traffic Volumes 5 6 4.1 4.2 4.3 Traffic Counts Existing Conditions Traffic Volumes Proposed Conditions Traffic Volumes Traffic Analysis 5.1 5.2 5.3 Capacity and Level of Service Analysis Traffic Signals Operational Analysis Recommendations and Conclusions APPENDICES 2 2 2 4 4 4 4 5 5 5 6 13 13 15 16 17 18 WHKS & CO. List of Figures Figure 1 - Vicinity Map ......................................................................................................................................................... 2 Figure 2 - Concept Plan .......................................................................................................................................................3 Figure 3. Existing Conditions, Lane Configurations........................................................................................................ 7 Figure 4 - Existing Conditions, AM Peak Hour ...Volumes................................................................................................ 8 Figure 5 - Existing Conditions, PM Peak Hour Volumes.................................................................................................. 9 Figure 6 - Proposed Conditions, Lane Configurations...................................................................................................10 Figure 7 - Proposed Conditions, AM Peak Hour Volumes .............................................................................................11 Figure 8 - Existing Conditions, PM Peak Hour Volumes ................................................................................................12 List of Tables Table 1 - Analysis Scenarios.............................................................................................................................................13 Table 2 - Capacity and Level of Service Summary .........................................................................................................14 WHKS & CO. 1 Introduction and Executive Summary 1.1 Purpose of Report and Study Objectives The Dubuque Community School District (the District) is in the process of acquiring properties in the downtown area bordered by 11 Ih Street on the south, 13th Street on the north, Central Avenue on the west, and White Street on the east for a new elementary school. The District proposes to acquire all of the properties within that boundary, including 12th Street and the alleys to the north and south of 12th Street. The purpose of this report is to estimate the impacts the closure of 12th Street, between White Street and Central Avenue, will have on vehicular and pedestrian traffic in the area. The report describes the existing vehicular volumes at the six intersections around the subject property, analyzes the operation of the redistributed traffic for the proposed condition, and documents the impacts to local businesses and City services in the surrounding area. The report recommends improvements needed in the immediate project area due to the proposed 12th Street closure. The report does not address the impacts of the additional pedestrian or vehicular traffic generated by the proposed elementary school. 1.2 Site Location The project site is located in the City of Dubuque, Iowa, Section 24, Township 89N, Range 2E. The capacity and level of service (LOS) study area and the operational study area are shown on the vicinity map. See Figure 1. 1.3 Executive Summary The closure of 12'h Street, between Central Avenue and White Street, will cause drivers that use that stretch of 12th Street to find alternate east ¡west routes. For the purpose of this study, all traffic on 12th Street was assigned to 13th Street. The closure of 12th Street, between Central Avenue and White Street, is estimated to cause increased traffic on 13th Street. The increased traffic at the existing unsignalized intersections on 13th Street at Central Avenue and White Street reduces the capacity and level of service at these intersections from LOS Band C to LOS C and D. Traffic signals are warranted and recommended to be installed on 13th Street, both at Central Avenue and at White Street, primarily for pedestrians. The existing signals on 1th Street, at Central Avenue and at White Street, are recommended to be removed. The existing traffic signals that are located on 11'h Street and the proposed signals on 13th Street will be the pedestrian crossing locations on Central Avenue and White Street most useful for elementary school students. WHKS & CO. - Off-site areas are 2.1 Off-site Development 1. No specific off-site developments were identified for the purpose of this study. established residential, commercial and industrial areas. 2.2 On-site Development The Dubuque Community School District proposes to develop two downtown city blocks into an elementary school, estimated to be completed by the year 2006. The proposed elementary school, which will serve Kindergarten through 5th Grade, will replace the existing school located on part of the development area that currently serves Kindergarten through 2nd Grade. The proposed development is anticipated to consist of a school building, play fields, and parking. A concept plan for the Downtown Elementary School is presented in Figure 2, however additional concept plans exist. The main entrance to the school is proposed to face White Street, near the intersection with 11th Street. The play fields will be partially fenced, but open to the public when school is not in session. WHKS & CO. 3 Area Conditions 3.1 Study Area The study area for capacity and level of service analysis is the area bordered by 11th Street on the south, 13th Street on the north, Central Avenue on the west, and White Street on the east. The study area for operational impacts to businesses and city services is the area bounded by 11th Street on the south, 13th Street on the north, Bluff Street on the west, and US 151/61 on the east. 3.2 Study Area Land Use The existing land use within both study areas is a mix of residential, commercial, and industrial. Both study areas are within the downtown area of the City of Dubuque. 3.3 Site Accessibility 3.3.1 Area Roadway System White Street and Central Avenue, a north-south one-way pair, define the eastern and western boundaries of the elementary school development. This one-way pair is US 52, a major route through Dubuque. 11th Street is a one-way westbound street, defining the southern boundary of the proposed elementary school development, and is a main connector from US 151/61 to downtown Dubuque. 11th Street's complementary one-way eastbound street, 9th Street, is two blocks south of 11 th Street. 1 ih Street and 13th Street are local streets that run approximately 8-blocks, from Bluff Street on the west to almost US 151/61 on the east. There is on-street parking on almost all of the streets around the proposed elementary school. See Figure 1. 3.3.2 Transit Service The KeyLine public bus service runs on White Street, Central Avenue, and 12th Street. There are bus stops on White Street and Central Avenue between 1ih Street and 13th Street, and a bus stop on 12th Street just west of Central Avenue. 3.3.3 Bicycle and Pedestrian System There are no signed bicycle routes near the site. There are sidewalks along all of the streets, providing pedestrian access to the site. WHKS & CO. 4 Traffic Volumes 4.1 Traffic Counts The City of Dubuque performed traffic counts for the District. The City used Nu-Metrics automatic vehicle counters to collect 24-hours of traffic count data, in 15-minute batches, at the six intersections in the study area. Automatic vehicle counters were placed in each traffic lane approaching each intersection. The counts were performed between July 27, 2004 and August 4, 2004. The traffic in each intersection lane was counted for a continuous 24-hour period. The City provided WHKS with the raw count data and WHKS reduced the traffic volume data. First, the 24-hour counts for each recorder were tabulated by intersection and by lane. Counts that spanned two calendar days were treated as if they had all been counted between 12:00 AM and 11 :59 PM, by prefixing the following day's counts to the beginning of the count sequence. See AppendixA-1. Pedestrians were not counted, both because the existing elementary school at the site is not currently in session, and because the Nu-Metrics counters do not count pedestrians. 4.2 Existing Conditions Traffic Volumes 4.2.1 Peak Hour Traffic Volumes The AM and PM peak hour volumes were identified by choosing the hour (four consecutive 15- minute intervals) with the highest sum of vehicles counted over all intersections. The time proximity of the individual lane peak hour to the AM or PM peak hour volume was visually inspected, to confirm that the AM and PM peak hour selected approximated the individual lane peak hour volumes. See Appendix A-2. The AM peak hour and PM peak hour chosen for analysis are 7:45 AM to 8:45 AM and 3 PM to 4 PM respectively. There is a secondary peak hour traffic volume, from approximately 12:00 PM to 1:00 PM, that was not studied. This peak hour appears to mimic the PM peak hour volumes, at slightly lower volume levels, and is not significantly different than the PM peak hour. 4.2.2 Traffic Assignment and Volume Balance The automatic traffic counters did not distinguish between lane movements where a traffic lane has shared lane movements. For example, east bound 13th Street approaching Central Avenue is a single lane, but traffic can cross Central Avenue, continuing east bound, or turn right on Central Avenue. For this traffic lane, the 24-hour traffic record is a combination of the through and right-turn traffic. For traffic lanes with shared movements, WHKS assumed the percentage of vehicles in the shared lane making each of the movements. This assumption was guided by a rough traffic volume balance on the internal roadway links between the intersections. See Appendix B-1 and Appendix B-2. Since not all traffic counts were taken on the same day, it is not possible to make traffic volumes on internal links between intersections balance exactly. Either the John Kerry motorcade on August 3, 2004, travelling westbound on 11th Street from US 151/61 to Iowa Street, or a traffic counter problem caused the White Street counts at 11th Street to be lower, by about half, compared to the counts on White Street at 12th Street and 13th Street. The Iowa Department of Transportation performed traffic counts at this intersection, and Central Avenue WHKS & CO. 6 and 11th Street, in 2001, and these lOOT values were used for White Street, factored up to 2004 using a 2% annual growth rate. The other counts at the intersection of White Street and 11th Street and at Central Avenue and 11th Street appeared to match the factored lOOT 2001 counts well. The existing intersection lane configurations are shown in Figure 3. The existing AM peak hour traffic volumes are shown in Figure 4. The existing PM peak hour volumes are shown in Figure 5. 4.2.3 Pedestrians The primary pedestrian traffic in the area is generated by the elementary school. Students arrive at the elementary school starting at 8:30 AM and school begins at 9:00 AM. School is dismissed at 3:30 PM, except on Wednesdays students are dismissed at 1 :30 PM. Students generally clear the school grounds within 15-minutes of dismissal. The school arrival and departure times coincide with the AM and PM peak vehicle traffic volumes on the adjacent streets. It is assumed that there is a significant pedestrian volume during the student arrival and departure times at the existing elementary school. Currently 230 students (Kindergarten through 2nd Grade) attend the downtown elementary school. Approximately 130 students are bussed from Fulton Elementary, and approximately 100 students walk to school. A majority of the students that walk to school are accompanied by an adult. If not accompanied by an adult, students that walk to school must have a waiver from parents so that they can walk alone. The primary origin of pedestrian students is the residential neighborhood northeast of the school. 4.3 Proposed Conditions Traffic Volumes 4.3.1 Traffic Redistribution The closure of 12'h Street, between Central Avenue and White Street, will cause drivers that use this block of 12'h Street to find alternate east ¡west routes. The three main east ¡west choices are 10th Street, 13th Street, or 14th Street. Of the three, 13th Street is the closest alternate to 12th Street, and would likely be preferred by most drivers. However, 10th Street and 14th Street are higher volume streets, providing more turning room for large vehicles, and would likely be preferred by truck drivers. For the purpose of this study, all traffic on 12th Street was assigned to 13th Street. The small number of trucks using other routes was not considered significant. The proposed intersection lane configurations are shown in Figure 6. The proposed AM peak hour traffic volumes are shown in Figure 7. The existing PM peak hour volumes are shown in Figure 8. 4.3.2 Transit Service The KeyLine public bus service has stated that there are alternative routes on 14th Street that can be used, if 12th Street is closed. 4.3.3 Pedestrians The addition of 3"', 4th, and 5th Grade students to the existing school population, and the removal of Fulton Elementary Kindergarten through 2nd Grade students, will change the student pedestrian characteristics. The 4th and 5th Grade students, and possibly the 3rd Grade students, that choose to walk to school, will be permitted to walk to school without the accompaniment of an adult. These older students may even accompany a younger sibling to school. All of the students will either walk or be driven to school, but it is possible that in the future bussing will be used. It is estimated that 300 students will walk to school, and 50 will be driven to school. School busses serving special needs students are anticipated to serve the new elementary school. WHKS & co. 13 5 Traffic Analysis 5.1 Capacity and Level of Service Analysis The techniques and procedures used to compute capacity and level of service (LOS) are outlined in the Transportation Research Board's Highway Capacity Manual 2000 (HCM). The computations and procedures described in the HCM were performed using the Highway Capacity Software, Version 2000. The scenarios studied are tabulated in Table 1. Scenarios 1 : AM Peak: Existinn Sianalized 11th Street and Central Avenue 2 : AM Peak: Existina Sianalized 11 th Street and White Street 3: AM Peak: ExistinaSTanalized 12th Street and Central Avenue 4: AM Peak: Existinn Sianalized 12th Street and White Street 5: AM Peak: Existinn Unsinnalized 13th Street and Central Avenue 6: AM Peak: Existina-Unsianalized 13th Street and White Street 7 : PM Peak: Existinn Sianalized 11 th Street and Central Avenue 8 : PM Peak: Existina Sianalized 11th Street and White Street 9 : PM Peak: Existina Sianalized 12th Street and Central Avenue 10 : PM Peak: Existina Sianalized 12th Street and White Street 11 : PM Peak: Existinn Unsinnalized 13th Street and Central Avenue 12 : PM Peak: Existina Unsianalized 13th Street and White Street 13: AM Peak: PrOOosed Unsianalized 12th Street and Central Avenue 14 : AM Peak: Pronosed Unsianalized 12th Street and White Street 15: AM Peak: Pronosed Unsianalized 13th Street and Central Avenue 16: AM Peak: PrOOosed Unsianalized 13th Street and White Street 17 : AM Peak: Prooosed Sianalized 13th Street and Central Avenue 18: AM Peak: Pronosed Sinnalized 13th Street and White Street 1 9 : PM Peak: Prooosed UnsiOnalized 12th Street and Central Avenue 20: PM Peak: Prooosed Unsianalized 12th Street and White Street 21 : PM Peak: Pronosed Unsinnalized 13th Street and Central Avenue 22 : PM Peak: ProDosed Unsianalized 13th Street and White Street 23 : PM Peak: Prooosed STanalized 13th Street and Central Avenue 24 : PM Peak: Prooosed Sianalized 13th Street and White Street Table 1 - Analysis Scenarios It was assumed that no intersections experienced significant right-turns on red, due to on-street parking and/or existence of one-way streets. Student pedestrian traffic was assumed to be concentrated at the intersection of White Street with 11th Street. Five parking maneuvers per hour were assumed on all streets. The City provided traffic signal timings for the existing signalized intersections. Only the eastbound 11 th Street lane at the intersection with Central Avenue is actuated by loop detector. All other intersections signal timings are pretimed. WHKS & CO. 14 The measures of intersection performance are the volume-to-capacity ratio (v/c), queue length and delay. The v/c ratio is the ratio of forecasted peak hour demand volume to the estimated capacity of a lane group. A v/c ratio greater than 1.0 indicates forecasted demand will exceed the computed capacity of a lane group. Delay is measured in seconds, and is estimated for each lane group that must stop or yield. If an entire approach roadway must stop or yield, an average approach delay is provided. Queue lengths are provided in units of 25-foot long vehicles. The capacity and LOS analysis summary is found in Table 2. For details, see the appendix section listed for the analysis scenario. Intersection Worst Movement HCS Scenario Delay LOS Lane Delay LOS v/c ratio 95% Output in Queue I (seclveh) (sec/veh) I (vehicles) Appendix 1 31 C SBT 35 D 0.89 18 D-1 2 12 B WBT 14 B 0.30 5 D-2 3 21 C SBT 23 C 0.83 18 D-3 4 11 B WBT 14 B 0.18 6 D-4 5 N/A - Unsignalized WB L-T 16 C 0.06 1 D-5 6 N/A - Unsiqnalized EB L-T 11 B 0.03 1 D-6 7 47 D SBT 56 E 1.01 24 D-7 8 15 B NBT 15 B 0.64 13 D-8 9 18 B SBT 19 B 0.72 14 D-9 10 13 B WBT 14 B 0.17 3 D-10 11 N/A - Unsiqnalized WBL-T 14 B 0.07 1 D-11 12 N/A - Unsianalized EB L-T 15 B 0.09 1 D-12 13 N/A - Unsiqnalized EBR 11 B 0.04 1 D-13 14 N/A - Unsianalized WBR 10 A 0.11 1 D-14 15 N/A - Unsignalized WB L-T 23 C 0.31 2 D-15 16 N/A - Unsiqnalized EB L-T 15 B 0.21 1 D-16 17 16 I B SBT 17 B 0.74 15 D-17 18 11 I B EBT 13 B 0.20 3 D-18 I 19 N/A - Unsiqnalized EBR 11 B 0.06 1 D-19 20 N/A - Unsiqnalized WBR 11 B 0.14 1 D-20 21 N/A - Unsianalized WB L-T 18 C 0.23 1 D-21 22 N/A - Unsianalized EB L-T 26 D 0.44 3 D-22 23 15 I B SBT 16 B 0.67 13 D-23 24 15 I B NBT 15 B 0.66 13 D-24 Table 2 - Capacity and Level of Service Summary In the existing conditions, the signalized intersections on Central Avenue, at 11th Street and 12th Street, develop significant queues in the AM and PM peak hours, with intersection delays between 18-seconds and 47-seconds. However, using SOAP2K to optimize the intersection timing, it is possible to reduce the maximum intersection delay (scenario 7) from 47-seconds to 25-seconds, improve the LOS from D to C, and improve the worst movement v/c ratio from 1.01 to 0.77. {'/VA -fi¡,.. S þ" J..~... -e 1'7~ I~;tt:..,-"""f 7'1 s~ - WHKS & CO. 15 In the existing conditions, the signalized intersection on White Street at 11th Street develops significant queues primarily in the PM peak hour. Although the intersection timing could be optimized, the measures of intersection performance given the City timings are reasonable; LOS 8, with all v/c ratios under 0.65. In the existing conditions, the unsignalized intersections on 13th Street, at Central Avenue and White Street, are estimated to operate at LOS 8 for the AM and PM peak hour, with small queues and significant excess capacity. In the proposed conditions, if the intersections on 13th Street, at Central Avenue and White Street, are unsignalized, the intersection LOS ranges between 8 and D. However, in the proposed conditions, if the same intersections are signalized, the intersection LOS is 8. Assuming these intersections can be interconnected with the adjacent signalized intersections, it is assumed that the queue lengths would be significantly smaller than predicted by HCS. n) ! In the proposed conditions, there is no increased vehicular traffic volume at the 11'h Street intersections with Central Avenue or White Street. However, the pedestrian traffic at the 11th Street intersection with White Street is anticipated to increase from 100 pedestrians to 300 pedestrians, over the 30-minute arrival and departure periods. The HCS analysis shows that the increase in pedestrian traffic does not decrease the intersection capacity or LOS at this intersection. See Appendix D-25 and 0-26. 5.2 Traffic Signals 5.2.1 111h Street The existing traffic signals on 11th Street, at Central Avenue and White Street, provide a location for pedestrian students to cross Central Avenue and White Street. A signal warrant analysis was not performed for these intersections. It is assumed that these signals are warranted. 5.2.212Ih Street In the proposed conditions, it is assumed that the existing signals on 12th Street, at Central Avenue and White Street, will be removed, since the intersection movements resulting from the closure of 12th Street, between Central Avenue and White Street, will be only right-turn or major street through movements. There will be no conflicting left-turn or minor street through movements at these intersections. The District does not want to encourage pedestrians to cross Central Avenue or White Street at 12th Street. A signal warrant analysis was not performed for these intersections. 5.2.3 13th Street A signal warrant analysis was performed for the intersections on 13th Street, at Central Avenue and White Street, for the year 2004. See Appendix C for signal warrant worksheets. It is estimated that Traffic Signal Warrant #5: School Crossing is satisfied for both intersections on 13th Street, due to estimated pedestrian volumes, estimated gaps in traffic, and the ability to coordinate the subject signals with the adjacent signals to provide progressive movement of vehicular traffic. Vehicular volumes are not the cause for signals being warranted at the 13th Street intersections. At a 2% annual traffic growth rate, it is estimated that Traffic Signal Warrant #1: Eight-Hour Vehicular Volume-Condition A would be 100% satisfied at Central Avenue in approximately 35-years and at White Street in approximately 17-years. WHKS & CO. 16 5.3 Operational Analysis There are approximately 50 businesses located within the boundary established for the operational analysis; between 11th Street on the south and 13th Street on the north, and between Bluff Street on the west and US 151/61 on the east. Each business received a letter from WHKS describing the District proposal to close 12th Street, from Central Avenue to White Street, and solicited comments on the proposal. See Appendix E-12 for the text of the letter. WHKS contacted the larger businesses, Fire Department, Police Department, City Maintenance and Operations, and KeyLine bus service individually to solicit input on the proposed closure of 12th Street. There were eleven responses documented, including correspondence, email, telephone calls and meetings. The summaries are found in Appendix E. The main comments received, that can be addressed by this traffic study, were: " "Downtown traffic circulation will be hindered by the closure of 12th Street between Central Avenue and White Street" 1ih Street is a minor roadway, compared to the main circulation routes in Dubuque. The closure of one block out of the continuous 8 blocks of 12th Street proposed by the District will result in a relatively small number of vehicles needing to find an alternate route. " "Existing parking problems will be exacerbated." 12th Street, between Central Avenue and White Street, does not currently allow on-street parking. The closure of this section of 12th Street will not adversely affect parking in the area. There will be a few on-street parking stalls eliminated, on 13th Street and White Street, to accommodate new driveways, but others should be added at old driveways, or at the old 12th Street intersection, for no net loss. If the City requires the proposed signalized intersections on 13th Street to be striped similarly to the existing 1 ih Street lanes, some on-street parking could be lost on 13th Street. The traffic analysis shows that the shared lanes at the proposed 13th Street signalized intersections provide adequate intersection capacity and LOS, and on- street parking on 13th Street does not need to be removed. " "Turn 11th into a two-way street between Central Avenue and White Street" A beneficial counter clockwise traffic circulation pattern around the proposed downtown elementary school could be developed if 11th Street, between Central Avenue and White Street, were converted to two-way. The effects to on-street parking by adding a lane and the intersection turning radii for larger vehicles should be studied before this comment can be fully addressed. » "Double parking on streets could become a problem during student arrival and departure times." The proposed circulation aisle in the school parking lot is 22-feet wide, wide enough for two 11-foot lanes. This provides a lane for vehicles waiting to pick-up students or stopping to drop- off students, and a lane for other vehicles to pass. The potential for double parking on City streets will be significantly reduced by accommodating the pick-up and drop-off maneuvers within the school property. " "There will likely be an increase of traffic on Jackson Street or other north south streets." Since Central Avenue and White Street are one-way streets, it is likely that Iowa Street and Jackson Street will see some increased traffic between 11 th Street and 13th Streets. The volume increase should, however, be minimal. WHKS & CO. 17 6 Recommendations and Conclusions The closure of 1zth Street, between Central Avenue and White Street, is estimated to cause increased traffic on 13'" Street. The increased traffic at the existing unsignalized intersections on 13'" Street at Central Avenue and White Street reduces the capacity and level of service at these intersections from LOS Band C to LOS C and D. Traffic signals are warranted and recommended to be installed on 13th Street, both at Central Avenue and at White Street, primarily for pedestrians. The existing signals on 12'" Street, at Central Avenue and at White Street, are recommended to be removed. The existing traffic signals that are located on 11'" Street and the proposed signals on 13th Street will be the pedestrian crossing locations on Central Avenue and White Street most useful for elementary school students. WHKS & co.