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Commission Agenda 06212010 - Palmettodocsonline.palmettofl.org/palmetto/Agendas/city/2010/Commission/...conventional growth management based on roadway levels of service to create

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Bradenton PalmettoDowntown Mobility Study

At the request of the cities of Palmettband Bradenton in 2007 the Sarasota Manatee MPOauthorized funding through its Congestion ManagementProcess for a Downtown Mobility Studycovering both citiestoaddressc ritical transportation issues related to downtown redevelopmentand circulation congestion relief and expcmsion of Illultimodcl transportation options The studyhas been completed and afinClI reporlsubmitted Presentations have been made to the City ofBradenton and the Manafee County Board ofCounty coinmissioners boJh of which endorsed the

study A presentation to the ardsota Manotee MPO is pending on June 28th The City ofBrad nton is continuingtc workwifh the Florida Department of Transportation to consider

pedestrian enhancement strategies for SR 64 Manatee Avenue as part of a drainage and

resurfacing project alon withlnodificatiollst9 the Green Bridge US 41 Business to betteraccommodate cyclists and pedestrians The plan includes both long term and short term strategiesfor improved mobility and access he executive summary from the report is enclosed

A representative from the consultantj Renaissan e Planning Group along with the City of

Bradenfon will provide anov rvi w of the study Clnd take questions or cOllllllents CityCommission questionsClndcomments willbe relayed to the MPO Clnd FDCT At its July meetingtheMPO is planning to have a more thorough discussion about the vision and various projectsplanned for the US 41 Tcmiami Trail corridor throu houtthe region from Palmetto to North Port

DOWNTOWN MOBILITY STUDY FINAL REPORT

EXECUTIVE SUMMARY

INTRODUCTION

In a way unlike any since the boom years of the 1 920s the rules truly have changed Florida and

its communities are facing a series of challenges that threaten the state s long term fiscal health

its livability and its very character With boom burbs gone bust and empty storefronts lining manysuburban commercial corridors there is a heightened interest in quality redevelopment infill and

mobility strategies that strengthen the economic vitality of Florida s cities This push comes from

several sources including rising fuel costs and a greater interest in developing alternative forms

of transportation a national and statewide emphasis to reduce greenhouse gas emissions linked

to climate change and concerns about long term energy sustainability

Perhaps most significantly the Florida Legislature acted in 2008 to change the rules concerning

transportation concurrency to encourage development within the state s urban centers With the

passage of SB 360 the Legislature expressed its interest in shifting statewide policy from

conventional growth management based on roadway levels of service to create transportationconcurrency exception areas in Florida s dense urban areas Based on criteria set by the new law

the cities of Bradenton and Palmetto are now exempt from state mandated concurrency to

achieve and maintain roadway level of service standards Instead the communities must create

and define funding strategies for a mobility plan that addresses development of alternatives to

single occupant vehicle travel This is a major change in the rules that supports redevelopment and

mobility goals for both Bradenton and Palmetto

Cities largely remain the state s economic engines serving as hubs for business governmenthealth care culture and entertainment With the state s population and revenues in decline cities

provide the regional access and concentration of resources that draw jobs people and the

services they need Their effectiveness at generating economic activity requires thoughtfulattention and careful planning to achieve the proper urban form and enhanced multimodal

mobility and access necessary to benefit the community and region

STUDY GOALS AND CONTEXT

The Bradenton Palmetto Downtown Mobility Study represents a two year effort to imagineanalyze plan and build consensus for viable mobility strategies that effectively serve the regionaland local travel needs in the downtown areas of both cities Figure ES l identifies the study area

which generally focuses on the downtown areas of both Palmetto and Bradenton includingadjacent neighborhoods The goal of the study is to define a long term vision and strategicblueprint for mobility that supports the redevelopment and revitalization goals of both cities to

make their downtown areas inviting attractive and economically sustainable destinations that

benefit the entire community and region Both communities have completed redevelopment plansfor their downtown and waterfront areas Thus the outcome of this extensive planning process is

a practical cost efficient plan that provides a balanced set of recommendations intended

improve livability personal mobility and access while also serving regional and through traffic

needs

Page E 1

DOWNTOWN MOBILITY STUDY FINAL REPORT

FIGURE ES I STUDY AREA

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IU Bradenlon Palmetto

Downtown MobilityStudy

StudArea

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The creation of the Tampa Bay Area Regional Transportation Authority TBARTA and its adoptedRegional Multimodal Master Plan has major implications for Palmetto and Bradenton TBARTA has

given new impetus to various forms of regional transportation particularly inter county passenger

rail Bus Rapid Transit and express bus connections which include both Palmetto and Bradenton as

important anchors of this regional network

The study evaluates near and long term transportation improvement options including the

feasibility of recommendations to convert the one way streets of Manatee Avenue and 6th Avenue

into two way streets as well as a possible series of street connections to enhance circulation the

placement of roundabouts improved access for existing and future transit service and ensuringcontinued truck access for deliveries Transit enhancements bicycle and pedestrian connectivityand parking availability are essential to an effective downtown mobility plan

At the outset the study sought to define a balanced traffic circulation and mobility plan in supportof the economic vitality and enhanced livability of the downtown area while also maintainingtraffic flow and improving safety This entailed creation of a phased implementation program for

transportation projects tied to development and traffic growth in the area Recommendations

include an implementation action plan that identifies capital project priorities funding strategiesand policy changes to improve downtown mobility and access in both communities The study

Page E 2

DOWNTOWN MOBILITY STUDY FINAL REPORT

entails a blend of technical analysis with focused public participation activities to create a

mobility improvement plan that reflects consensus on strategies and priorities for each local

government Because of the complexity and competing demands of the downtown transportationnetwork a primary objective of the study entailed substantial efforts to achieve acceptance bythe Florida Department of Transportation as well as other stakeholders in the community

PROJECT PARTNERS

The Sarasota Manatee Metropolitan Planning Organization MPO allocated funding for the

Bradenton Palmetto Downtown Mobility Study through its Congestion Management Process and

the Florida Department of Transportation provided the funds to conduct the study The City of

Bradenton provided the contractual and administrative oversight of the consulting contract with

Bradenton and the City of Palmetto serving as joint project managers for the completion of the

study Other agency study partners have included Manatee County Government the Bradenton

Downtown Development Authority DDA and the Central Community Redevelopment Agency

With funds coming from the MPO s Congestion Management Process the study established a

horizon year of 2013 to focus on near term low cost projects that could improve mobility and

relieve congestion A longer term vision helped provide the framework for these strategies

RECOMMENDED MOBILITY PLAN

Figure ES 2 presents the recommended short and long term strategies for the Downtown MobilityStudy Tables ES l and 2 shows the breakdown of these projects into short intermediate and longterm horizons with planning level costs developed for each The Plan first established a long term

regional vision for transportation serving the downtown area with short term projects through the

2013 analysis year designed to make substantial progress toward achieving the study goalsWith more than 60 million in recommended transportation improvements the study recommends

starting small with projects that can be achieved in a financially feasible way over the next

several years

Page E 3

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DOWNTOWN MOBILITY STUDY FINAL REPORT

There are three signature projects in the short term recommendations First is the relativelyminimal road diet or lane reduction on Manatee Avenue and 6th Avenue through downtown

Bradenton as shown in Figure ES 3 This improves pedestrian accessibility helps to overcome a

major barrier between the downtown core and adjacent commercial and residential areas to

better unify downtown and with strategic improvements to MLK Jr Avenue and other

surrounding locations maintains traffic flow for non local traffic Two roundabouts at Manatee

Avenue and 15th Street and MLK Jr Avenue and 14th Street support this recommendation in the

mid term horizon but are not essential to the proposed modification of Manatee and 6th

Avenues The study recommends a short term trial of the lane reduction using traffic cones prior to

actua I construction

FIGURE ES 3 MANATEE 6YH CONCEPTUAL DESIGNS

Man 1t AvenueTMWM Qneo wY lbound

6th Avenueti Unt f bow1d

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Page E 8

DOWNTOWN MOBILITY STUDY FINAL REPORT

The second signature project is the modification of the Green Bridge Tamiami Trail to enhance

the multimodal environment for this designated Scenic Highway By relocating the existing barrier

and other minor modifications to create a 10 multi use path as shown in Figure ES 4 the Green

Bridge can become the backbone of an outstanding bicycle and pedestrian network serving the

two cities This is a very low cost medication with the potential to increase use of non auto modes

for transportation purposes and draw many visitors to help market the downtown area

FIGURE ES 4 RECOMMENDED GREEN BRIDGE DESIGN MODIFICATION

Bradenton Palmetto Downtown Mobility StudyGreen Bridge Bus 41

lane Modlf1callon Option

Existing Condition

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Page E 9

The third major project is the construction of a

Transit Mall for Manatee County Area Transit

on 13th Street West in downtown Bradenton

Funded with a federal grant the project entails

conversion of the existing roadway to allow

both waiting buses and cars to share the road

with a much enhanced pedestrian environment

that improves north south connectivity As

identified in Figure ES 5 this provides a

dedicated transit staging transfer area that is

controlled and policed by MCAT A downtown

transit circulator route would provide improvedtransit connectivity between local origins and

destinations to this transfer point In the longerterm Bus Rapid Transit linkages to Sarasota and express bus or even passenger rail service to

Tampa and St Petersburg will help anchor Palmetto and Bradenton as highly accessible and

economically vital destinations

FIGURE ES 5 DESIGN CONCEPT FOR THE 13TH STREET TRANSIT MALL

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13th STREETSECTION AFTER

DOWNTOWN MOBILITY STUDY FINAL REPORT

A key interim step for longer term strategies includes conducting a Project Development and

Environmental PD E Study to fully evaluate the potential grade separation of US 41 301 at

Haben Boulevard as well as alternative ways to improve connectivity and access in this area This

should be examined as a key element of the Regional US 41 concept to improve north south

traffic flow in the study area The long term alternative to the Regional 41 concept is to construct

a third bridge across the Manatee River This new bridge found much support from keystakeholders during the course of the Downtown Mobility Study

Finally because the Downtown Mobility Study is a multi year multi phase effort establishingbenchmarks and targets is an effective way to measure progress toward plan implementationand keep the study fresh The study recommends that the cities initiate a monitoring program in

partnership with the Sarasota Manatee MPO and Florida Department of Transportation to

document progress toward achieving the mobility goals outlined in this study A monitoring reportwould fit within the MPO s established Congestion Management Process and should include three

main categories 1 local Government Mobility Strategy Actions 2 land Development Activityand 3 Transportation Characteristics Trends and Patterns consistent with performance measures

used in this study

Page E 1 0

DOWNTOWN MOBILITY STUDY FINAL REPORT

KEY SUPPORTING FINDINGS

Origin Destination StudyA key data collection effort entailed an identification of how many travelers in the study area

were making a local stop or merely traveling through to reach a destination elsewhere The results

were surprising From a license plate survey conducted in the spring of 2008 at the study area s

main entry and exit points about one third 35 percent of traffic on the major roadways was

traveling through without a destination stop in the two downtowns Of perhaps even greaterinterest only about 11 percent of traffic on SR 64 Manatee Avenue and 61h Avenue from the

eastbound or westbound directions travels through the study area The origin destination studyrevealed possible ways to redirect non local traffic to use other corridors such as 91h Street East

in Bradenton and also provided information supporting multimodal transportation and parkingstrategies to make local travel more efficient

Traffic Conditions

Traffic volumes have remained relatively flat on downtown area roadways over the last decade

despite the growth boom in Manatee County of the early to mid 2000s The outcomes of this

recommended plan result in improved mobility and access for the downtown areas without

sacrificing the mobility of through travelers and regional needs Even with the lane reductions on

Manatee Avenue and 61h Avenue average delay changes by only 15 seconds and the peakcongestion period lasts less than an hour with 201 3 traffic which is only a minor increase from

current conditions While the bridges and access points on either side of the river experiencecongestion today the sections of Manatee Avenue and 61h Avenue in the downtown core of

Bradenton are not congested today Using current traffic levels the duration of congestion with

the lane reduction and projected growth through 201 3 would be less than 15 minutes occurringduring one or two cycle lengths at the most This is well below what most cities would argue is an

acceptable level of congestion for a thriving economically healthy downtown

Multimodal Quality of Service

The existing environment for bicyclists pedestrians and transit users with the exception of isolated

facilities along a few roadways in both cities is generally poor There is a lack of facilities poor

connectivity and limited buffer areas between vulnerable road users and passing traffic Crossingstreets on foot can be a challenge The recommended plan with the addition of a downtown

transit circulator in Bradenton and a better network supporting non auto travel raises the qualityof service for all modes and provides a foundation for growth in recreational and transportationtrips using multimodal facilities and services The Green Bridge 1 31h Street Transit Mall the MLK

Jr Avenue traffic calming and other strategies create improved connections within the downtown

area and its linkages to surrounding neighborhoods and other parts of Manatee County

Page E 11

DOWNTOWN MOBILITY STUDY FINAL REPORT

Public ParticipationThe community played a significant role in shaping the study recommendations Three publicworkshops multiple steering committee and stakeholder meetings neighborhood briefings and

other activities helped to define areas of consensus or agreement Initial scenarios or projectconcepts were rejected or refined based on public input Recommendations that did not generatesufficient consensus to move into the near term list of strategies were deferred to later years and

further discussion Examples include potential grade separations on US 41 301 sJuth of the

Manatee River a third bridge and lane reductions for increased pedestrian safety convenience

and comfort to 8th Avenue in Palmetto and 14th Street in Bradenton Of particular interest was

how initial study recommendations for MLK Jr Avenue in Bradenton affected the south central

Bradenton neighborhood located along that corridor After consultation with neighborhoodresidents and leaders a modified plan was developed that addressed their concerns over traffic

speeds and pedestrian safety and include improved pedestrian crossing areas and street

network connections to improve access in this area

PLAN ACTIONS AND OUTCOMES

The Downtown Mobility Study recommended plan is a win win for personal mobility and economic

development in Manatee County and represents many hours of hard work by the communitystakeholders and their representatives to develop a cohesive transportation strategy that supportsthe visions of both communities and the region The input of FOOT MCAT and other agency

partners helped to improve the plan and make it more achievable

As a result this is not an idealistic or grand vision plan with mere hopes of becoming realityRather from the input of many agency and public stakeholders along with extensive and

thorough technical analysis it is a mobility plan that is firmly grounded in the achievable Initial

ideas imagined the what if possibilities to tame traffic and create walkable downtown districts

while moving traffic efficiently and captivating large numbers of people willing to ride transit

ride their bikes and stroll to their destinations From those initial ideas the project moved quicklyinto a process of defining workable realistic and financially attainable solutions that helpedcreate a great destination while ensuring safe convenient and balanced transportation options

Key implementation actions include amending both cities comprehensive plans to incorporate the

recommendations of this study into their required SB 360 mobility plans moving forward on

improved wayfinding and signage both within the downtown and connecting to it revisingparking policies and practices to provide incentives for non auto travel while improving the urban

character establishing a more robust Transportation Demand Management program to reduce

peak period automobile travel and accomplishing projects as part of coordinated project

development such as for street resurfacing and drainage improvements

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