HomeMy WebLinkAbout22. 17-242 MAY 9, 2017 17-242 RESOLUTION
(CARRIED 4-3 LOST LAID OVER WITHDRAWN )
AS AMENDED
PURPOSE: PROVIDE RECOMMENDATION TO WISCONSIN
DEPARTMENT OF TRANPORTATION (WDOT) FOR JACKSON —
OREGON STREET BRIDGE
INITIATED BY: CITY ADMINISTRATION
WHEREAS, the Wisconsin Department of Transportation has determined that
the Jackson — Oregon Street Bridge is in need of repair and replacement and prepared
several alternative plans for consideration; and
WHEREAS, WDOT held public information meetings and hosted meetings with
local officials and stakeholders to receive input on the various alternatives for repair
and replacement of the bridge which have narrowed the alternatives to 3 favored
options including rehabilitation of the current bridge structure, a high fixed level bridge
reconstruction and an on-alignment lift bridge reconstruction; and
WHEREAS, WDOT has provided the Common Council the opportunity to make
a recommendation on the alternatives; and
WHEREAS, the alternatives were reviewed by the Plan Commission,
Redevelopment Authority, Traffic Review Board, Bike and Pedestrian Committee and
Sustainability Committee.
NOW, THEREFORE BE IT RESOLVED by the Common Council of the City of
Oshkosh that the Common Council hereby recommends the following alternative to the
Wisconsin Department of Transportation for the repair/reconstruction of the Jackson —
Oregon Street Bridge located in the City of Oshkosh:
• Rehabiiitation of the Current Bridge Structure
• High Fixed Level Bridge Rer:onstrudio_n.
• On-Alignment Lift Bridge Reconstruction
NOW, THEREFORE BE IT FURTHER RESOLVED by the Common Council of
the City of Oshkosh that the Common Council selection in no way indicates the
City's endorsement or acceptance of the current interpretation of Wisconsin
State Statutes, section 84.10 that assigns financial responsibility to the City of
Oshkosh.
Bold and Italics Indicates Amendment
City
of�
Oshkosh
MEMORANDUM
TO: Honorable Mayor and Members of the Co o uncil
FROM: James Rabe, Director of Public Works
DATE: May 4, 2017
RE: Provide Recommendation to Department of Transportation (DOT) for
Jackson — Oregon Street Bridge
BACKGROUND
The DOT has determined that the Jackson — Oregon Street Bridge (Bridge) is in need of repair or replacement. Over
the past couple years, the DOT and their consultants have been preparing conceptual drawings and planning level
estimates of construction cost in order to thoroughly evaluate the options for the Bridge. On April 27, 2016, the
DOT held their first Public Information Meeting (PIM) where members of the general public were invited to view
the conceptual drawings and speak with DOT representatives. Prior to this meeting, there were local official and
stakeholder group meetings. On October 13, 2016, the DOT held a second PIM to present information learned since
the previous PIM and present current conceptual drawings. Prior to this second PIM, there were again local official
meetings and stakeholder group meetings. On January 10, 2017, the DOT held a workshop with the Common
Council to present a narrowed list of alternatives. This narrowed list of alternatives was developed from a local
official meeting in which the previous eighteen (18) alternatives were narrowed to seven (7) alternatives.
Since the January 10th workshop, the focus has primarily been on three (3) of the remaining seven (7) alternatives:
• Rehabilitation (Alternative B)
• High -Level Fixed Bridge Reconstruction (Alternative C-1)
• On -Alignment (both river walks pass through under bridge) Lift Bridge Reconstruction (Alternative F)
The Common Council asked that our local Boards and Commissions be given an opportunity to provide their input
to the Common Council. To that end, presentations were made by staff to the following Boards and Commissions:
Plan Commission, Redevelopment Authority, Traffic Review Advisory Board, Pedestrian and Bicycle Advisory
Committee, and the Sustainability Advisory Board. The various Board and Commission recommendations to the
Common Council are shown in the table below:
Board/Commission
Recommendation
Plan Commission
Alternative F, modified to include the Division Street intersection realignment
Redevelopment Authority
Alternative C-1
Traffic Review
Alternative C-1
Ped and Bike
Alternative C-1
Sustainability
Alternative C-1
The final renderings distributed to Council on May 2, 2017 were not available to the Boards and Commissions at
the time of their actions. The first set of renderings were available to the Plan Commission prior to their action.
L\ Engineering \ DOT Projects \ Jackson -Oregon St. Bridge \ 05-09-2017 CC Meeting \ Provide Page 1 Of 3
Recommendation to DOT 5-4-17.docu
ANALYSIS
There are several advantages and disadvantages to all of the alternatives. The attached Oregon/Jackson Street Bridge
Alternative Summary prepared by the DOT presents a detailed summary. The summary below takes a look at some
important factors:
Com arison Factors
Factor
Rehabilitation
New Fixed Bridge
New Lift Bridge
(Alt B)
(Alt C-1)
(Alt F)
Operational Jurisdiction
DOT
city
city
Estimated Annual
$142,000
Minimal
$142,000
Maintenance Cost (2015)
Estimated Annual Cost of
N/A
$688,200 (w/o state aid)
$1,605,800 (w/o state aid)
Future Replacement
$137,640 (if state bridge
$321,200 (if state bridge
(Construction only)
aid is available)
aid is available)
River Walk Crossing
At Grade
Under Bride
Under Bridge
Pedestrian Safety
Crossing at Street
Oen Crossing
Tunnel -Like Crossing
View
No change, remains fairly
View through Bridge on
View through Bridge on
blocked looking through
river blocked (large
river open (open pillars).
Bridge.
closed abutments).
Approach view blocked
Approach view blocked
up close (1.5 stories).
up close (1 story).
Height
No change at peak of
Fourteen feet (14') higher
Five feet (5') higher at
Bridge.
at peak of Bridge.
peak of Bridge.
Beckett's Access
No Change
Realigned to Division
Realigned to near
Street
parking ramp entrance
Division Street Access
No Change
Realigned intersection
No Change
with Marion Road
Seasons Closed to
1
2 Years
2 Years
Vehicular Traffic
The existing Bridge opens, on average, approximately 350 times per year more than the Wisconsin -Ohio Street
Bridge. The reason for the increased number of openings is that the Bridge has a reduced navigational clearance,
requiring the Bridge to open for boats that can pass under the Wisconsin -Ohio Street Bridge. Just raising the Bridge
to match the same navigational clearance as the Wisconsin -Ohio Street Bridge does not provide adequate clearance
for the river walk to pass through under the Bridge.
FISCAL IMPACT
There is no immediate fiscal impact to this resolution. There are, however, long-term fiscal impacts to the City of
Oshkosh (City) depending on which alternative the DOT ultimately chooses to implement for the Bridge. The DOT
has stated that the responsibility for maintenance and operation of the Bridge under any reconstruction alternative
would become the responsibility of the City (§84.10 Wisconsin State Statutes) upon completion of the
reconstruction project. It should be noted that the DOT's application of §84.10 has been inconsistent over the years.
Staff is relying on the DOT's current interpretation in the analysis.
The Construction Cost Comparison table below shows the estimated construction cost prepared by the DOT for the
two (2) reconstruction options. The DOT cost estimate was prepared using 2016 costs. If we assume a cost inflation
rate of 1.50%, the estimated cost in 2022 when the project would be issued for construction bidding, and then in
2099 when the bridge would need to be replaced again are shown in the table. Should the City become responsible
for the operation and maintenance of the Bridge, the City would also be responsible for the future replacement cost.
L\ Engineering \ DOT Projects \ Jackson -Oregon St. Bridge \ 05-09-2017 CC Meeting \ Provide Page 2 of 3
Recommendation to DOT 5-4-17.docx
Construction Cost Comparison
2016 2022 2099
Fixed Bride $15,000,000 $16,401,600 $51,614,600
Movable Bride $35,000,000 $38,270,500 $120,434,100
The DOT currently has a Local Bridge Improvement Assistance program, which helps local municipalities rehabilitate
and replace bridges. Should the program still exist in 2099 when the Bridge requires replacement again, and should
the 80% state / 20% local cost share ratio remain the same, the City's costs in 2099 could be approximately
$10,322,900 for the fixed bridge option and $24,086,800 for the movable bridge option. This would reduce the
annual cost of future replacement to approximately $137,640 and $321,200 respectively.
As mentioned above, the DOT has stated that the responsibility for maintenance and operation of a reconstructed
bridge would become the responsibility of the City. In an effort to help the City understand what those ongoing
costs could be, the DOT provided the following five (5) year table of operating costs for five (5) lift bridges located
within Winnebago County. Four (4) of these five (5) bridges are located in the City of Oshkosh, with the fifth bridge
being located in the Village of Winneconne. These operating cost figures do include the cost of providing a bridge
tender.
Looking at the cost data, the 2015 Main Street operating costs seems to be an outlying data point. The remaining
costs are all in a similar range. If we rule out that one (1) data point, the average operating costs for 2014-2015 are
approximately $142,000 per year. Also ruling out the one (1) outlying data point, the average annual inflation rate
on these operating costs is approximately 5.75% per year.
Winnebago County Lift Bridge Annual Operating Costs
Main Street
Oregon
Street
Wisconsin
Street
Oshkosh
Avenue
Winneconne
Total
2011
$ 114,690.39
$ 122,297.64
$ 119,888.30
$ 117,402.73
$ 109,560.48
$ 583,839.54
2012
$120,071.27
$139,418.73
$136,256.01
$116,279.01
$ 126,014.82
$ 638,039.84
2013
$ 144,728.47
$ 139,208.22
$ 164,359.81
$ 131,058.70
$ 138,968.74
$ 718,323.94
2014
$ 140,553.98
$ 132,049.00
$137,912.93
$147,234.63
$ 134,035.34
$ 691,785.88
2015
$192,183.99
$145,090.89
$156,579.47
$141,270.85
$143,385.82
$ 778,511.02
Total
$ 712,228.10
$ 678,064.48
$ 714,996.52
$ 653,245.92
$ 651,965.20
Since the reconstruction of the Wisconsin Street Bridge, the State of Wisconsin Legislature has stopped funding the
Community Sensitive Solutions (CSS) program. This program provided funding to improve the aesthetic features
of projects such as the Wisconsin Street Bridge. The aesthetic improvements to the Wisconsin Street Bridge that
were funded by the CSS program cost that project $500,000 - $1,000,000 (2005 dollars). Should the City desire
improved aesthetic features be included in a reconstruction option for the Bridge, the City would need to provide
that funding.
RECOMMENDATIONS
There are various considerations in deciding which option to recommend. The purpose of staff is to provide the
Council with sufficient information to be able to make an informed decisions. I recommend that whichever option
the Common Council chooses to recommend to the DOT, that the Council be resounding in their statement to DOT.
Approved:
M k A. Rohloff
City Manager
1:\ Engineering \ DOT Projects\ Jackson -Oregon St. Bridge \ 05-09-2017 CC Meeting \ Provide Page 3 of 3
Recommendation to DOT 5-4-17.docu
Oregon/Jackson Street Bridge Alternative Summary
(1) - Costs are very preliminary and only reflect construction costs expressed in 2016 dollars. Estimates do not include any associated design/construction engineering or utility costs. Costs are
currently 100% Federal/State funded. However, local cost share may be added at a later stage depending on aesthetic or design elements that the city wants to incorporate within the project.
Local cost share may also be added if local utilities are upgraded or replaced.
(2) - Costs are very preliminary and are expressed in 2016 dollars.
Annual operating costs for the Wisconsin Street lift bridge in City of Oshkosh (opened in 2008) have averaged roughly $120,000/year from 2010-2014. Operating costs include bridge tender labor,
utility costs, and miscellaneous minor repairs.
O -J Alternative Comparison.xlsx 12/15/2016
Alternative A
Alternative B
Alternative C1
Alternative E
Alternative F
Alternative J1
Alternative J2
No Build
Rehabilitation
High Level Fixed (Division St
On -Alignment (raised
On -Alignment (both
Off -Alignment (both
Off -Alignment (both
realigned)
clearance)
riverwalks separated)
riverwalks separated -
riverwalks separated -
Division St realigned)
Division St cul-de-sac)
Addresses structural
deficiencies
no
yes
yes
yes
yes
yes
yes
Improves multi -modal access
yes (5' bicycle lanes, 6'
yes (5' bicycle lanes, 6'
yes (5 bicycle lanes, 6'
yes (5' bicycle lanes, 6'
yes (5 bicycle lanes, 6'
across river
no
no
sidewalks)
sidewalks)
sidewalks)
sidewalks)
sidewalks)
Addresses boating clearance
no
no
yes (no bridge openings)
yes (improved clearance -
yes (improved clearance -
yes (improved clearance -
yes (improved clearance -
deficiency
fewer openings)
fewer openings)
fewer openings)
fewer openings)
Accommodates city
riverwalk plans
no
no
yes
no
yes
yes
yes
Magnitude of environmental
impacts
low
low
high
medium
high
high
high
Closure timeframe for
2 years construction -
2 years construction -
construction
N/A
1 year
2 years
2 years
2 years
bridge closure limited to 1
bridge closure limited to 1
year
year
Estimated construction cost
$0
$9-11
$14-16
$33-35
$34-36
$34-36
$34-36
in millions (1)
Estimated real estate cost in
$0
$0
$1.2-1.4
<$0.1
<$0.1
$0.9-1.1
$1.1-1.3
millions (2)
Life expectancy (years)
???
25
75
75
75
75
75
Future ownership
State
State
City
City
City
City
City
(1) - Costs are very preliminary and only reflect construction costs expressed in 2016 dollars. Estimates do not include any associated design/construction engineering or utility costs. Costs are
currently 100% Federal/State funded. However, local cost share may be added at a later stage depending on aesthetic or design elements that the city wants to incorporate within the project.
Local cost share may also be added if local utilities are upgraded or replaced.
(2) - Costs are very preliminary and are expressed in 2016 dollars.
Annual operating costs for the Wisconsin Street lift bridge in City of Oshkosh (opened in 2008) have averaged roughly $120,000/year from 2010-2014. Operating costs include bridge tender labor,
utility costs, and miscellaneous minor repairs.
O -J Alternative Comparison.xlsx 12/15/2016
4 Vi' '�
wrtx.ux Nwcxnr vav iecmx.
'
4't
txRixi M
VORE
�
04i
ST- �-
JaCK50Hi5F
3 M M 91 911 fa(1
err
Q� �
17VSf
iB9
1811
1i0.
lbs
r PglYMlU PPG{��e
^IIs l
A t I 8 Alg
s
}
.i5
1v0
rG5
In
__ . __ lw-
ew.
II:
- Lk991w ELL4 .2 1 ddd k
rsre „ PaL.xl ,
1.a
N00 n QsW WW HWO
x•04 Ii W TlwB +ASW :4+W M+W PIMO P2�06 [!. L'-0 N'm e.
2r— QiPW 20— ]WOO
PROJECT NO: 4994 -OT -00
HWY! LOCAL STREET I COUNTY: WINNEBAGO PLAN ANC PROFILE: OREGON/JACKSON STREET SHIM SHEET E
LEGEND
Roadway
- Sidewalk/Riverwalk
Structure
- Proposed Driveway
Project ID: 4994-07-00 - Oregon/Jackson Street Bridge - City of Oshkosh, Winnebago County PIM 2 - October 13, 2016
LEGEND
- Roadway
- Sidewalk/Riverwalk
Structure
- Proposed Driveway
Project ID: 4994-07-00 - Oregon/Jackson Street Bridge - City of Oshkosh, Winnebago County PIM 2 - October 13, 2016
�I
DREGoN - n JACKSON
w M s n, +
�.:
55 i' _M Si.hL PPaI..- AI t —T155
I
i
i
1 I I lg
f
IV00 2.00 6.0014.6o 15-m W ".do 4.00 6.00 70.00 71wa M.00 79.00 ,..00 25.00 M.00 27.00 70.00 29.00
PROJECT NO: 4S94-07-00 HWY: LOCAL STREET COUNTY: WINNEBAGO PLAN AND PROFILE: DREGON/JACKSON STREET HRWGE SHEET E
Project ID: 4994-07-00 - Oregon/Jackson Street Bridge - City of Oshkosh, Winnebago County
LEGEND
hRoadway
- Sidewalk/Riverwalk
Structure
- Proposed Driveway
'0'SGONg'
PIM 2 - October 13, 2016
LEGEND
Roadway
- Sidewalk/Riverwalk
Structure
- Proposed Driveway
Project ID: 4994-07-00 - Oregon/Jackson Street Bridge - City of Oshkosh, Winnebago County PIM 2 - October 13, 2016
a
ORfCCN
- _
JdCKSCN 51
rert»W
[uMxnr VOLa CpR.w[i�� = wig
#
reo
.e•
ns
y e�
7n
E
'
ns� .:
j
i
`e c:0.T' �'"r iIF Pref` - a �•e �� ^L _ i�^,�"^ r.
;i.oB O+m
ffiW0 ;6•ai 11.100 M.00 9+00 PN00 EP.00 P40A
L
a 3e•oo tg•m
PROJECT NC: 499.-C7-CC
NRv; LOCAL STREET COUNTY; N NESAGD PLAN ANO PROFILE: CRECDN/JACKSON STREET BRIDGE 5REET E
- —I swot att x..— _-.
,m..>.vn,..,..•n.rr.o... s.ue ur.nYc — —., 1.1-11.-1 — — e.. ,rim no* w. , 1.
..l. ...
LEGEND
Roadway
- Sidewalk/Riverwalk
Structure
- Proposed Driveway
Project ID: 4994-07-00 - Oregon/Jackson Street Bridge - City of Oshkosh, Winnebago County PIM 2 - October 13, 2016
LEGEND
Roadway
- Sidewalk/Riverwalk
Structure
- Proposed Driveway
Project ID: 4994-07-00 - Oregon/Jackson Street Bridge - City of Oshkosh, Winnebago County PIM 2 - October 13, 2016
�O
r
^_
-.
r f
--- _ JPCKSfln ST
t
,.a I .e.1
i
vecvaSFP csi�E P, N. �.Ft�
ewx�
rt0
16e
� "
�
z-k'
.e:�,v �,�rx a. rt.l
•uC. {{{JJJ
�_ �j
8:,
1.5
P e - .dm ..v
Tb [ I I
(SUNG fIE PN
Na
rl.aa rz.00 nwa n.00 n.Go
ram
R
n.ao ra•oo n�.00 eo.oa
el.00 az.ao ee.00 a�.aa
es.ao es.00 e,.00 ee.00 as.00
PROJECT NO: 4994-OT-00 NWT: LOCAL
STREET COLNITT: WIMFSAGO
PLAN AND PROFILE: OREGON/JACKSON STREET BRIDGE SHEET E
LEGEND
Roadway
- Sidewalk/Riverwalk
Structure
- Proposed Driveway
Project ID: 4994-07-00 - Oregon/Jackson Street Bridge - City of Oshkosh, Winnebago County PIM 2 - October 13, 2016
LEGEND
Roadway
- Sidewalk/Riverwalk
Structure
- Proposed Driveway
Project ID: 4994-07-00 - Oregon/Jackson Street Bridge - City of Oshkosh, Winnebago County PIM 2 - October 13, 2016
r_
bNwfrk o497
1
ercw.En+n...cw ew..ae�s� :�1 TI _
J'
15
l's Idrj 11
1Y
FJ
YYOx-�
+>,Y -- '.-- .
H5
Y
K = 3 rec.xseu a�.trtw+E• rorrkc.oN --,. -- - c�.. _
_ S
,so
-
rd
�
... ,. ....c
S' E-
Y.o
rxoa Yr.un +s•oo r.:IN
,z:oo re-oe ,r.00 re•oo *a•99 aoxw NbO ez•oo as.00 e.wu es.00 m.m eY.o9
ee:w es•oa
PROJECT N0: 9999-OT-OO
NWY: LOCAL STREET I COUNTY: WINNLBAGO PLAN ANO PRMLE: OREGON-ACKSON STREET BRIDGE
SHEET E
LEGEND
Roadway
- Sidewalk/Riverwalk
Structure
- Proposed Driveway
Project ID: 4994-07-00 - Oregon/Jackson Street Bridge - City of Oshkosh, Winnebago County PIM 2 - October 13, 2016
OSHKOSH CHAMBER OF COMMERCE
ADVOCACY COMMUNITY DEVELOPMENT LEADERSHIP
May 3, 2017
Bili Bertrand
Wisconsin Department of Transportation
Northeast Region
944 Vanderperren Way
Green Bay, WI 54304-9879
RE: Oregon/Jackson Street Bridge, City of Oshkosh
Dear Bill:
As your office completes its analysis of the Oregon/Jackson Street Bridge and develops alternatives and
final recommendations to address this facility, we wanted to provide comments relative to the
alternatives under consideration.
Assuming the Wisconsin DOT determines that the Oregon/Jackson Street Bridge needs to be rebuilt and
replaced, the final recommendation should include:
• Safety improvements for the travel public.
• An accommodation for bicycle and pedestrian travel and links to the river walks on both
shores, including the potential to separate the river walks under a new bridge.
• Improvement of vehicle traffic flow.
• Improvement of boater passage, including remote lift operations.
• Minimize impacts to adjoining real estate on redevelopment sites adjacent to the
Oregon/Jackson Street Bridge on both sides of the Fox River.
• Accommodation for the City's Riverwalk Plan.
• Maintaining consistency in design and operation with the other bridge facilities within the City
of Oshkosh.
• Reconstruction on its current alignment.
• Maintaining acceptable access to City Center.
We would like to note that the High -Level Fixed Span Bridge options, along with options that would
reconstruct this facility off its current alignment are not acceptable. Any final recommendations that
include these options would have significant negative impacts on redevelopment plans on the former
Jeld-Wen site and the City's Marion Road site. These options would cause irreparable damage to the
property owners' ability to fully maximize their investment and would severely reduce the City's
opportunity to maximize its tax base potential.
In reviewing the various options under consideration, we believe Alternative F (reconstruction on
alignment with both riverwalks separated) is the alternative that best meets the criteria listed above.
120 JACKSON STREET • OSHKOSH, VVI 54901 N• 920-303-2266 ' FAX: 920-303-2263 - info@oshhoshchamber.com
We further understand that some evaluation and consideration has been done where the Oshkosh
Chamber of Commerce building would be purchased to accommodate the realignment of Division Street
and Marion Road. While this is not included in Alternative F, we would be willing to work with the DOT
and the City of Oshkosh should that be desirable.
We ask that you please consider these comments and this perspective while making your final
recommendation. Should you have any questions, comments or need further clarification, please don't
hesitate to contact me at 920-303-2265 Extension 18.
Sincerely,
Scott Sitter �hnkCasper
Chairman of the Board President & CEO