HomeMy WebLinkAbout32. 18-116 FEBRUARY 27, 2018 18-116 RESOLUTION
(CARRIED 7-0 LOST LAID OVER WITHDRAWN )
AS AMENDED
PURPOSE: PROVIDE DIRECTION TO STAFF RELATING TO OSHKOSH
AVENUE CORRIDOR IMPROVEMENTS (OSHKOSH AVENUE,
KOELLER STREET & WESTFIELD STREET)
INITIATED BY: DEPARTMENT OF PUBLIC WORKS
WHEREAS, the City executed an agreement with KL Engineering, Inc. (KL) of
Madison to conduct a Traffic Impact Analysis (TIA) for the Oshkosh Corridor from
Koeller Street to the Fox River; and
WHEREAS, KL has made the following recommendation:
➢ Addition of southbound dedicated right-turn lane at the North Koeller Street
intersection (Alternate 1).
➢ Development of left-turn lanes at the North Westfield Street intersection
(Alternate 1).
➢ Development of either a ninety-degree four-legged intersection (Alternate 2A) or
a skewed four-legged intersection (Alternate 2C) at the North Sawyer Street
Intersection.
➢ Development of a four-lane divided cross section on Oshkosh Avenue from North
Koeller Street to North Eagle Street (Alternate 3).
➢ Development of a four-lane undivided cross section on Oshkosh Avenue from
North Eagle Street to the Fox River (Alternate 1).
WHEREAS, the Traffic Review Advisory Board recommends alternative 2A for
the North Sawyer intersection and concurred with the remainder of KL's
recommendations; and
WHEREAS, the Plan Commission recommends following KL's recommendations
as written; and
WHEREAS, it is necessary to obtain direction regarding improvements to the
Oshkosh Avenue Corridor, the North Koeller Street-Oshkosh Avenue intersection; and
FEBRUARY 27, 2018 18-116 RESOLUTION
CONT'D
the North Westfield Street — Oshkosh Avenue intersection to allow staff to design
infrastructure improvements for construction in 2018-19; and
WHEREAS,based upon the recommendations staff has identified 5 options for the
necessary improvements as identified in the attached Exhibit "A".
NOW, THEREFORE, BE IT RESOLVED by the Common Council of the City of
Oshkosh that the proper City officials are hereby directed to proceed with Option E as
identified in the attached Exhibit "A".
*BOLD &ITALICS INDICATE AMENDMENT
Exhibit "A"
Option A:
• Leave the corridor "as is", being a four -lane undivided cross section, with no left turn
lanes at North Westfield Street and the sidewalk remaining at the back of curb for the
entire length of the corridor.
(estimated cost - $200,000)
Option B:
• Implement the four -lane undivided cross section throughout the corridor with the
development of the dedicated left -tum lanes at the North Westfield Street intersection.
This option is Alternate 1 in the TIA.
(estimated cost - $940,000)
Option C:
• Implementation of the four -lane divided cross section from North Koeller Street to North
Eagle Street and the four -lane undivided cross section from North Eagle Street to the Fox
River. This option is Alternate 1 from North Eagle to the Fox River and Alternate 3 from
North Koeller Street to North Eagle Street in the TIA. This is the corridor recommendation
from KL.
(estimated cost - $4,200,000)
Option D:
• Implementation of the Two -Way Twin Left -Turn Lane alternative. This option is
Alternate 2 in the TIA.
(estimated cost - $4,000,000)
Option E:
• A combination of Options B and C for implementation purposes.
• Short-term implementation of the four -lane undivided cross section throughout the
corridor with the development of the dedicated left -turn lanes at the North Westfield
Street intersection.
• Long-term implementation of the four -lane divided cross section from North Koeller
Street to North Eagle Street and the four -lane undivided cross section from North Eagle
Street to the Fox River. This is the corridor recommendation from KL.
(estimated cost - $940,000 for 2018-19 construction, $4,200,00, plus inflation costs, in the
future)
City
of�
Oshkosh
MEMORANDUM
TO: Honorable Mayor and Members of the Common Council
FROM: James Rabe, Director of Public Works /v—
DATE: February 22, 2018
RE: Provide Direction to Staff Relating to Oshkosh Avenue Corridor Improvements
(Oshkosh Avenue, Koeller Street, and Westfield Street)
BACKGROUND
In December 2017, the City executed an agreement with KL Engineering, Inc. (KL) of Madison to conduct a
Traffic Impact Analysis (TIA) for the Oshkosh Avenue Corridor from Koeller Street to the Fox River. This
TIA was driven by the changes in traffic patterns and trip generations related to the construction of the
Oshkosh Corporation Global Headquarters and the planned redevelopment of the north side of Oshkosh
Avenue from Koeller Street to Mary Jewell Park. KL conducted traffic counts within the corridor and
consulted with the East Central Wisconsin Regional Planning Commission for background traffic data and
future traffic forecast information. The goal of the TIA was to develop recommendations to continue to meet
at least a Level of Service (LOS) of C or better in the "design year" of 2045. An LOS of A is the best you can
have, while an LOS of F is completely failed, with varying degrees of functionality in between.
On January 301h, a joint workshop between the Common Council, the Plan Commission, and the Traffic
Review Advisory Board was held to allow KL to present the TIA background information, alternatives
reviewed, and recommendations. The Traffic Review Advisory Board discussed the recommendations at
their February 131h meeting and made a recommendation for the implementation of the results of the TIA. A
Public Input Meeting was held at the Plan Commission meeting on February 201h to discuss the
recommendations, take public input, and make a recommendation on the implementation of the results of
the TIA.
Staff is seeking direction from the Common Council on the implementation of the improvements for the
Oshkosh Avenue Corridor, the North Koeller Street intersection, and the North Westfield Street intersection
at this time. Direction is necessary at this time in order to appropriately design necessary infrastructure
improvements to support the development of the Oshkosh Corporation Global Headquarters and the
redevelopment of the properties along the north side of Oshkosh Avenue between North Koeller Street and
Mary Jewell Park. Design of the infrastructure improvements cannot be done without direction as to what
improvements are to be completed at this time.
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Among the assumptions made in the development of the TIF Plans for TIF 34 and 35, the following
infrastructure assumptions were included:
• Development of an additional right -turn only lane for the southbound approach to the North Koeller
Street intersection, including additional right-of-way from 1870 Oshkosh Avenue.
• Dedicated left -turn lanes on Oshkosh Avenue at North Westfield Street, including additional right-
of-way from the properties between 1746 Oshkosh Avenue and 1610 Oshkosh Avenue, inclusive.
• Additional street lights and streetscaping along Oshkosh Avenue in the area between North Koeller
Street and Mary Jewell Park. The streetscaping improvements included grass terraces and terrace
trees where feasible.
ANALYSIS
North Koeller Street Intersection: The two (2) alternatives developed this intersection are: (a) keep the
intersection as is; or (b) develop the additional right -turn lane on the southbound approach. In order to
provide the desired LOS in the future condition, the alternate that includes the addition of the dedicated
southbound right -turn lane is recommended.
North Westfield Street Intersection: The two (2) alternatives developed for this intersection are: (a) a four -
legged signalized intersection; or (b) a roundabout. In order to provide the desired LOS, provide more
reasonable pedestrian and bicycle crossing accommodations, and minimize the impact of additional right-
of-way, the four -legged signalized intersection is recommended.
Oshkosh Avenue Corridor: The analysis indicates the existing corridor cross section could function, albeit
at a reduced LOS, for the developments with no improvements for the short term. In order to meet the LOS
goals in the long term, improvements will be necessary. At a minimum, the development of the left -turn
lanes at the North Westfield Street intersection are necessary in order to meet the desired LOS for the study
period. The TIF Plan assumptions included the development of these left -turn lanes. Implementing
additional improvements to the corridor will provide improved LOS and could provide improved aesthetics
to this gateway corridor.
The corridor alternatives realistically break down into five (5) different options:
Option A:
• Leave the corridor "as is", being a four -lane undivided cross section, with no left -turn lanes at North
Westfield Street and the sidewalk remaining at the back of curb for the entire length of the corridor.
Option B:
• Implement the four -lane undivided cross section throughout the corridor with the development of
the dedicated left -turn lanes at the North Westfield Street intersection. This option is Alternate 1 in
the TIA.
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Option C:
• Implementation of the four -lane divided cross section from North Koeller Street to North Eagle Street
and the four -lane undivided cross section from North Eagle Street to the Fox River. This option is
Alternate 1 from North Eagle to the Fox River and Alternate 3 from North Koeller Street to North
Eagle Street in the TIA. This is the corridor recommendation from KL.
Option D:
• Implementation of the Two -Way Twin Left -Turn Lane (TWLTL) alternative. This option is Alternate
2 in the TIA.
Option E:
• A combination of Options B and C for implementation purposes.
• Short-term implementation of the four -lane undivided cross section throughout the corridor with the
development of the dedicated left -turn lanes at the North Westfield Street intersection.
• Long-term implementation of the four -lane divided cross section from North Koeller Street to North
Eagle Street and the four -lane undivided cross section from North Eagle Street to the Fox River. This
is the corridor recommendation from KL.
FISCAL IMPACT
Option A: Costs would be for signal system upgrades at the intersection of North Westfield Street to allow
for the addition of the fourth leg. This option is estimated to cost approximately $200,000. This amount is
included in the TIF 34 and 35 budget assumptions.
Option B: Costs are the "Base Model" costs, as presented in the development of the TIF Plans for TIF 34 and
35. This "Base Model" cost is estimated at approximately $940,000.
Option C: Costs assume the complete reconstruction of Oshkosh Avenue from North Koeller Street to North
Eagle Street in order to provide a uniform -looking design to the gateway corridor. Based upon that
assumption, this option is estimated to cost approximately $4,200,000. This amount is $3,260,000 more than
shown in the TIF 34 and 35 assumptions. A complete reconstruction would involve special assessments to
adjacent properties along Oshkosh Avenue (including the residential properties on the south side) that could
offset some of the unbudgeted costs. Per the City's Special Assessment Policy, staff conservatively estimate
that special assessments would recoup approximately $400,000 of the street reconstruction cost. Additional
assessments for items such as sidewalk rehabilitation, driveway aprons, and utility laterals would apply per
the City's Special Assessment Policy. The entire $4,200,000 would still have to be financed through
borrowing (General Obligation and Revenue for the Utilities), which may be recouped by TIF proceeds as
development occurs in future years.
Option D: Costs assume the complete reconstruction of Oshkosh Avenue from North Koeller Street to North
Eagle Street in order to provide a uniform -looking design to the gateway corridor. Based upon that
assumption, this option is estimated to cost approximately $4,000,000 for the TWLTL option. The cost of the
additional concrete installation (in place of the vegetated median included in Option C) is offset by cost
reductions in streetscaping features from within the vegetated island. The streetscaping features included a
concrete curb and brick treatment similar to the median on STH 44 (South Park Avenue) just east of Koeller
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14 CC Memo -Direction Corridor Options_2-22-18.docx
Street. This amount is $3,060,000 more than shown in the TIF 34 and 35 assumptions. A complete
reconstruction would involve special assessments to adjacent properties along Oshkosh Avenue (including
the residential properties on the south side) that could offset some of the unbudgeted costs. Per the City's
Special Assessment Policy, staff conservatively estimate that special assessments would recoup
approximately $400,000 of the street reconstruction cost. Additional assessments for items such as sidewalk
rehabilitation, driveway aprons, and utility laterals would apply per the City's Special Assessment Policy.
The entire $4,000,000 would still have to be financed through borrowing (General Obligation and Revenue
for the Utilities), which may be recouped by TIF proceeds as development occurs in future years.
Option E: Costs would be approximately $940,000 in the short term, and then $4,200,000 (not factoring in
inflationary costs to the year the long-term implementation is built) in the future. This is the overall highest
cost option due to implementing two (2) different options (Option B and Option C) over time. The Council
could choose to implement the long-term portion of this plan when it is deemed financially feasible, or when
Oshkosh Avenue requires reconstruction due to condition.
RECOMMENDATIONS
KL recommends the following implementation:
• Addition of southbound dedicated right -turn lane at the North Koeller Street intersection (Alternate
1).
• Development of left -turn lanes at the North Westfield Street intersection (Alternate 1).
• Development of either a ninety -degree four -legged intersection (Alternate 2A) or a skewed four -
legged intersection (Alternate 2C) at the North Sawyer Street Intersection.
• Development of a four -lane divided cross section on Oshkosh Avenue from North Koeller Street to
North Eagle Street (Alternate 3).
• Development of a four -lane undivided cross section on Oshkosh Avenue from North Eagle Street to
the Fox River (Alternate 1).
The Traffic Review Advisory Board recommended Alternate 2A for the North Sawyer Street intersection,
and concurred with the remainder of KL's recommendations.
The Plan Commission recommended following KL's recommendations as written.
Staff recommends accepting the recommendations from KL for the North Koeller Street and North Westfield
Street intersections. Staff recommends delaying a decision on the North Sawyer Street intersection at this
time to allow the Redevelopment Authority time to review the analysis and recommendations. Staff
recommends corridor Option E presented above. This results in the best long-term LOS, while recognizing
the financial realities and constraints of the current time.
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14 CC Memo -Direction Corridor Options_2-22-18.docx
If a different short-term and long-term implementation strategy for the corridor is decided by the Common
Council, staff recommends that necessary right-of-way for the long-term strategy be preserved at this time.
Approved,
Mark A. Rohloff
City Manager
JER/tlt
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14 CC Memo -Direction Corridor Options_2-22-18.docx
Exhibit "A"
Option A:
• Leave the corridor "as is", being a four -lane undivided cross section, with no left turn
lanes at North Westfield Street and the sidewalk remaining at the back of curb for the
entire length of the corridor.
(estimated cost - $200,000)
Option B:
• Implement the four -lane undivided cross section throughout the corridor with the
development of the dedicated left -turn lanes at the North Westfield Street intersection.
This option is Alternate 1 in the TIA.
(estimated cost - $940,000)
Option C:
• Implementation of the four -lane divided cross section from North Koeller Street to North
Eagle Street and the four -lane undivided cross section from North Eagle Street to the Fox
River. This option is Alternate 1 from North Eagle to the Fox River and Alternate 3 from
North Koeller Street to North Eagle Street in the TIA. This is the corridor recommendation
from KL.
(estimated cost - $4,200,000)
Option D:
• Implementation of the Two -Way Twin Left -Turn Lane alternative. This option is
Alternate 2 in the TIA.
(estimated cost - $4,000,000)
Option E:
• A combination of Options B and C for implementation purposes.
• Short-term implementation of the four -lane undivided cross section throughout the
corridor with the development of the dedicated left -turn lanes at the North Westfield
Street intersection.
• Long-term implementation of the four -lane divided cross section from North Koeller
Street to North Eagle Street and the four -lane undivided cross section from North Eagle
Street to the Fox River. This is the corridor recommendation from KL.
(estimated cost - $940,000 for 2018-19 construction, $4,200,00, plus inflation costs, in the
future)
2/27/2018
Oshkosh Avenue Corridor Options
February 27, 2018
i .
Looking East at Koeller Looking West at Sawyer
Looking West at Westfield n
Oshkosh
Oshkosh Avenue Corridor Options
• Option A: Leave Corridor As Is
• Option B: Four Lane Undivided with Turn Lanes at
North Westfield Street
• Option C: Four Lane Divided
• Option D: Two Way Left Turn Lane
• Option E: Combination of Options B and C
Oshkosh
1
2/27/2018
Option A
• Leave Corridor As Is
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Oshkosh
Option B
• Four Lane Undivided with Turn Lanes at North
Westfield Street (Alt 1 in TIA)
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Remainder of Corridor Oshkosh
2
2/27/2018
Option C
• Four Lane Divided (Alt 3 in TIA)
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Option C
• Four Lane Divided
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• Recommended by KL Engineering
• Recommended by Traffic Advisory Board
• Recommended by Plan Commission F
Oshkosh
3
2/27/2018
Option D
• Two - Way Left Turn Lane (TWLTL) (Alt 2 in TIA)
LJ
TWO-WAY
LEFT-TURN LANE
Five-Lane TWLTL
Koeller St.to Eagle St.
Oshkosh
Option D
• Two - Way Left Turn Lane (TWLTL)
ilk
¢xwnr+i TWO-WAY oc�anrro
ww
1 LEFT-TURN LANE 1
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Three-Lane TWLTL
Eagle St.to Fox River
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Oshkosh
4
2/27/2018
e
Option E
• Short Term Implementation of the Four Lane Undivided
with turn lanes at Westfield Street (Option B)
• Long Term Implementation of Four Lane Divided
(Option C)
Oshkosh
Oshkosh Avenue Corridor Options
Looking East at Koeller Looking West at Sawyer
i
Looking West at Westfield
Oshkosh
5