HomeMy WebLinkAboutOshkosh_Jackson_Street_Traffic_Safety_and_Quality_of_Life
Jackson Street Multimodal
Traffic Safety and Quality of
Life Study
Church Avenue to Murdock Avenue City of Oshkosh Prepared for: City of Oshkosh 10/5/2020
N17 W24222 Riverwood Drive, Suite 310
Waukesha, WI 53188-1132
262.523.4488 • Fax: 262.523.4477
www.AyresAssociates.com
Ayres Associates Project No. 49-0128.00
File: l:\49\49012800 oshkosh jackson street\reports\traffic study\2020_1005 - oshkosh jackson street traffic safety and quality of
life.docx
Jackson Street Multimodal Traffic Safety and Quality of Life Study
Church Avenue to Murdock Avenue City of Oshkosh
i
Contents
Page No.
Executive Summary ...................................................................................................................................... 1
Introduction ................................................................................................................................................... 8
Study Area .................................................................................................................................................... 8
Traffic Volumes ............................................................................................................................................. 9
Existing Traffic ......................................................................................................................................... 9
Traffic Forecast ...................................................................................................................................... 13
Existing Conditions ..................................................................................................................................... 15
Traffic Speeds ........................................................................................................................................ 15
Crash History ......................................................................................................................................... 17
Traffic Operations .................................................................................................................................. 19
Methodology ..................................................................................................................................... 19
2019 Existing Operations ................................................................................................................. 19
2045 No-Build Operations ................................................................................................................ 20
Alternatives Analysis ................................................................................................................................... 22
Methodology .......................................................................................................................................... 22
Alternatives ............................................................................................................................................ 22
Alternative 1: Maintain Existing Cross-Section ................................................................................ 22
Description .................................................................................................................................. 22
Traffic Operations ........................................................................................................................ 22
Travel Speeds ............................................................................................................................. 24
Safety .......................................................................................................................................... 25
Estimated Cost ............................................................................................................................ 25
Alternative 2A: Full Roadway Redesign with Two-Way Left-Turn Lane .......................................... 25
Description .................................................................................................................................. 25
Traffic Operations ........................................................................................................................ 26
Travel Speeds ............................................................................................................................. 29
Safety .......................................................................................................................................... 29
Estimated Cost ............................................................................................................................ 30
Alternative 2B: Partial Roadway Redesign with Two-Way Left-Turn Lane ...................................... 30
Description .................................................................................................................................. 30
Traffic Operations ........................................................................................................................ 30
Travel Speeds ............................................................................................................................. 33
Safety .......................................................................................................................................... 33
Estimated Cost ............................................................................................................................ 34
Two-Way Left-Turn Lane (TWLTL) and Traffic Volume Guidance ........................................................ 34
ii
Comparable TWLTL Corridors .............................................................................................................. 35
Public Engagement ..................................................................................................................................... 36
Stakeholder Meetings ............................................................................................................................ 36
Public Engagement & Listening Session ............................................................................................... 36
Public Engagement Meeting #2 ............................................................................................................. 37
Other Improvement Considerations ............................................................................................................ 38
Congress Avenue & Nevada Avenue Intersections .............................................................................. 38
Murdock Avenue Roundabout ............................................................................................................... 38
Comparison of Alternatives ......................................................................................................................... 40
Conclusions & Recommendations .............................................................................................................. 41
List of Tables
Page No.
Table 1: Intersection Level of Service Description ....................................................................................... 2
Table 2: Comparison of Year 2045 Expected Intersection Traffic Operations ............................................. 5
Table 3: Comparison of Alternatives ............................................................................................................. 6
Table 4: Jackson Street Collected Travel Speeds ...................................................................................... 16
Table 5: Jackson Street Reported Crashes by Location ............................................................................ 18
Table 6: Intersection Level of Service Description ..................................................................................... 19
Table 7: 2019 Existing AM Peak Hour Traffic Operations .......................................................................... 20
Table 8: 2019 Existing PM Peak Hour Traffic Operations .......................................................................... 20
Table 9: 2045 No-Build AM Peak Hour Traffic Operations ......................................................................... 21
Table 10: 2045 No-Build PM Peak Hour Traffic Operations ....................................................................... 21
Table 11: 2019 Alternative 1 AM Peak Hour Traffic Operations................................................................. 23
Table 12: 2019 Alternative 1 PM Peak Hour Traffic Operations................................................................. 23
Table 13: 2045 Alternative 1 AM Peak Hour Traffic Operations................................................................. 24
Table 14: 2045 Alternative 1 PM Peak Hour Traffic Operations................................................................. 24
Table 15: 2019 Alternative 2A AM Peak Hour Traffic Operations .............................................................. 27
Table 16: 2019 Alternative 2A PM Peak Hour Traffic Operations .............................................................. 27
Table 17: 2045 Alternative 2A AM Peak Hour Traffic Operations .............................................................. 28
Table 18: 2045 Alternative 2A PM Peak Hour Traffic Operations .............................................................. 28
Table 19: 2019 Alternative 2B AM Peak Hour Traffic Operations .............................................................. 31
Table 20: 2019 Alternative 2B PM Peak Hour Traffic Operations .............................................................. 31
Table 21: 2045 Alternative 2B AM Peak Hour Traffic Operations .............................................................. 32
Table 22: 2045 Alternative 2B PM Peak Hour Traffic Operations .............................................................. 32
Table 23: City of Oshkosh Roadway Redesign Corridors – AADT Comparison ........................................ 35
Table 24: Comparison of Alternatives ......................................................................................................... 40
iii
List of Figures
Page No.
Figure 1: Alternative 1 Cross-Section ........................................................................................................... 3
Figure 2: Alternative 2A Cross-Section ......................................................................................................... 3
Figure 3: Study Area ..................................................................................................................................... 8
Figure 4: Jackson Street Hourly Traffic Distribution South of Irving Avenue .............................................. 10
Figure 5: Jackson Street Hourly Traffic Distribution South of Hobbs Avenue ............................................ 10
Figure 6: 2019 Existing Peak Hour Traffic Volumes ................................................................................... 12
Figure 7: Jackson Street Historical Daily Traffic Pattern ............................................................................ 13
Figure 8: 2045 Peak Hour Traffic Volumes ................................................................................................. 14
Figure 9: Traffic Speed Data Collection Locations ..................................................................................... 15
Figure 10: Jackson Street Speed Distribution at North Location ................................................................ 16
Figure 11: Jackson Street Speed Distribution at South Location ............................................................... 17
Figure 12: Alternative 1 Cross-Section ....................................................................................................... 22
Figure 13: Alternative 2A Cross-Section ..................................................................................................... 25
Figure 14: Painted Bump-Out Example ...................................................................................................... 26
Figure 15: FHWA Guidance on Maximum Volume for Roadway Redesign ............................................... 35
List of Exhibits
Exhibit 1: Alternative 1 Conceptual Plan
Exhibit 2: Alternative 2A Conceptual Plan
Exhibit 3: Alternative 2B Conceptual Plan
List of Appendices (Included in Technical Supplement)
Appendix A Intersection Turning Movement Counts
Appendix B Highway Capacity Manual Analysis Outputs
Appendix C Alternative Cost Estimates
Appendix D Public Engagement Comments
1
Executive Summary
The City of Oshkosh retained Ayres Associates to conduct a traffic safety and quality of life study along
the Jackson Street corridor from Church Avenue to Murdock Avenue. Existing traffic speed and safety
data indicate there is a need to tame traffic speeds in this residential neighborhood that will enhance
safety for all users, and improve mobility for vehicles, pedestrians, and bicyclists. The study summarizes
existing travel speeds, safety, and operation of the corridor and identifies several roadway cross-section
improvement alternatives.
A land use, zoning, urban design, and transportation plan for the area between I-41 and Murdock
Avenue, north of the study corridor, is underway concurrently with this traffic safety and quality of life
study. Because both studies are located along the Jackson Street corridor, the public engagement
process was coordinated and included presentations on both studies, allowing attendees to comment on
both study corridors. The corridor study to the north is summarized in a separate document, but
references to the other study area can be found in the public engagement portion of this report.
Jackson Street is a north/south, four-lane urban roadway, with a 30-mph posted speed limit. The street is
also identified as a “connecting highway” by the Wisconsin Department of Transportation (WisDOT) as
US 45 and STH 76. The corridor also serves as the signed alternate route for I-41. The corridor includes
17 intersections, including Murdock Avenue and Church Avenue, as well as 148 private curb openings
serving 165 residential properties. The corridor travels through a predominantly residential neighborhood.
The presence of Merrill Elementary/Middle School to the east and the University of Wisconsin-Oshkosh to
the west creates pedestrian activity along the corridor, with a high number of students of all ages. Traffic
signal-controlled intersections are located at New York Avenue, Irving Avenue, and Church Avenue.
The study segment of Jackson Street was reconstructed by WisDOT in 2001, expanding the street from
two lanes to four lanes with a greatly reduced terrace width. The width of the roadway is 45’, within a 60’
right-of-way from Church Avenue to New York Avenue and a 66’ right-of-way from New York Avenue to
Hobbs Avenue. The intent of this study is not a full roadway reconstruction as the existing roadway still
has useable life.
Intersection turning movement counts were gathered at the three study intersections of New York
Avenue, Irving Avenue, and Church Avenue from 3:00pm – 6:00pm on Monday, November 18, 2019;
6:00am – 9:00am on Tuesday, November 19, 2019; and 6:00am – 9:00am on Wednesday, November 20,
2019 when surrounding schools were in session.
WisDOT traffic counts gathered in 2019 resulted in the following daily traffic volumes:
• Murdock Avenue to New York Avenue: 17,100 vpd
• New York Avenue to Irving Avenue: 12,300 vpd
• Irving Avenue to Church Avenue: 10,300 vpd
Jackson Street historical daily traffic counts along the study corridor indicate that traffic volumes have
remained relatively constant over the last 20 years. Traffic forecasts from the ECWRPC indicate an
average annual growth rate of approximately 0.35% per year is expected on Jackson Street, with slightly
lower growth on the intersecting streets. This growth rate results in the following daily traffic volume
estimates for the design year of 2045
• Murdock Avenue to New York Avenue: 18,650 vpd
• New York Avenue to Irving Avenue: 13,400 vpd
• Irving Avenue to Church Avenue: 11,250 vpd
2
Vehicle speed data on Jackson Street, collected at two locations along the study corridor, indicate the 85th
percentile speeds range between 35 mph and 40 mph and 68% to 92% of traffic exceeds the posted 30
mph speed limit, depending on the location and the direction of travel.
Street segment and intersection crash data provided by the UW TOPS Lab for the five-year period from
2014 through 2018 indicate an average of 63 crashes occur per year within the study corridor with a peak
of 75 total crashes in 2016.
The highest intersection crash locations were as follows:
• Murdock Avenue: Average 16 crashes per year
• New York Avenue: Average 13 crashes per year
• Irving Avenue: Average 6 crashes per year
The primary collision patterns involved left-turn, rear-end, and lane-changing/sideswipe crashes. The
three intersections identified above experience intersection crash rates above the most recent statewide
average crash rate for urban intersections. Four of the corridor crashes during the study time period
involved pedestrians. The prevalence of left-turn crashes at the Jackson Street intersection with New
York Avenue lead to a decision in 2018 to prohibit northbound and southbound left turns from Jackson
Street onto New York Avenue weekdays from 3pm to 7pm. During the 12-month period following the
implementation of the left-turn restriction, the Jackson Street intersection with New York Avenue
experienced five crashes.
Intersection operation is typically quantified based on its level of service (LOS) during peak traffic volume
periods. The LOS is determined based on the average amount of delay experienced by each vehicle
entering an intersection during the study period and is categorized by grades ‘A’ through ‘F’. As a
National Highway System Route, WisDOT identifies the desirable LOS as LOS ‘D’ or better.
Table 1 provides a brief summary of the different intersection LOS.
Table 1: Intersection Level of Service Description
A ≤ 10 ≤ 10
B > 10 - 20 > 10 - 15
C > 20 - 35 > 15 - 25
D > 35 - 55 > 25 - 35
E > 55 - 80 > 35 - 50
F > 80
Or V/C >1.0
> 50
Or V/C >1.0
The three study intersections within the project corridor operate at LOS ‘D’ or better under the existing
conditions and are expected to continue to operate at LOS ‘D’ or better in the design year of 2045 under a
“Do Nothing” scenario.
3
The study identified three corridor improvement alternatives, all of which are expected to operate at an
acceptable LOS ‘D’ or better.
Alternative 1 maintains the existing four-lane cross-section along Jackson Street between Church Avenue
and Murdock Avenue, as shown in Figure 1. The alternative would include the installation of speed
feedback signs on overhead poles to increase motorist’s awareness of their speed and encourage a
reduction in travel speed. Two speed feedback signs would be installed in each direction of travel; one
shortly after entering the study corridor and a second near Scott Avenue to reinforce the need to comply
with the posted speed limit. Maintaining the existing cross-section limits the ability to incorporate
geometric improvements along the corridor. The concept drawing for Alternative 1 is shown in the
attached Exhibit 1.
Figure 1: Alternative 1 Cross-Section
Alternative 2A reconfigures the existing Jackson Street four-lane cross-section between Church Avenue
and Murdock Avenue to one 11’-wide through lane in each direction, a 13’-wide center two-way left-turn
lane, and a 5’ curb buffer area on each side of the street, as shown in Figure 2. This design changes the
roadway image from a highway to an urban street. Along southbound Jackson Street, the two lanes
exiting the roundabout at Murdock Avenue would merge to a single lane prior to the intersection with
Stanley Avenue. Northbound Jackson Street would expand from one lane to two lanes near the
intersection with Hobbs Avenue. This design would also allow for dedicated left-turn lanes to be included
at the signalized intersections with a shared through/right-turn lane in each direction. Left turns would be
prohibited from northbound Jackson Street to westbound Nevada Avenue to avoid potential left-turning
safety conflicts with southbound traffic.
Figure 2: Alternative 2A Cross-Section
Continental-style crosswalk pavement markings would be installed at the unsignalized intersections with
Prospect Avenue, Scott Avenue, and Lincoln Avenue, along with pedestrian crossing signs at each of
4
these locations. A crosswalk would also be added on the north side of the Jackson Street intersection
with Congress Avenue. This crossing would feature rectangular rapid flashing beacons (RRFB) to draw
more attention to the presence of pedestrians. Continental-style crosswalks provide increased visibility
for oncoming traffic and sight impaired pedestrians. The existing crosswalk at the Jackson Street
intersection with Hobbs Avenue would be removed for pedestrian safety purposes given the four lanes of
traffic, the presence of turning vehicles, and the lane add/drop conditions that would occur with this
alternative. The combination of these factors results in several decision points for motorists making it
difficult for pedestrians to safely cross the street.
The narrowed travel way of Alternative 2A allows for consideration of curb bump-outs at the locations
where pedestrian crosswalks will be added at Lincoln Avenue, Scott Avenue, Prospect Avenue, and
Congress Avenue. These bump-outs could involve reconstruction of the curb and gutter and sidewalk
extension, or as a painted bump-out with bollards that would leave the existing curb and gutter in its
existing location. The painted bump-out with bollards presents challenges with snow removal and
therefore is the less desirable option. The reconstruction option provides an improved raised curb refuge
area for pedestrians and eliminates the potential for damage to the bollards but would require potential
drainage improvements.
Alternative 2A would include the installation of speed feedback signs on side-mounted poles to make
motorists aware of their speed and encourage a reduction in travel speed. Two speed feedback signs
would be installed for each direction of travel; one shortly after entering the study corridor and a second
near Scott Avenue to reinforce the encouragement to comply with the posted speed limit.
Reducing the number of lanes along Jackson Street from four to three in Alternative 2A would reduce the
amount of aid received by the City from WisDOT for connecting highways. Based off of year 2020
payments, converting to the three lane cross section for 1.13 miles would reduce the connecting
highways funding by $8,202.10 per year.
The concept drawing for Alternative 2A is shown in the attached Exhibit 2.
Alternative 2B combines the Alternative 2A design south of New York Avenue with the Alternative 1
design north of New York Avenue. The existing four-lane cross-section along Jackson Street between
Church Avenue and New York Avenue would be reconfigured to one 11’-wide through lane in each
direction, a 13’-wide center two-way left-turn lane, and a 5’ curb buffer on each side of the street. This
would allow for the improvements previously described in Alternative 2A to be included south of New York
Avenue, including designated left-turn lanes at signalized intersections and the addition of continental-
style crosswalks and curb bump-outs at Prospect Avenue, Scott Avenue, and Lincoln Avenue.
Jackson Street between New York Avenue and Murdock Avenue would remain under the existing four-
lane configuration. The only improvement along this segment would be the installation of a speed
feedback sign for southbound traffic exiting the roundabout at the Murdock Avenue intersection. The
four-lane cross-section would transition to the three-lane redesigned roadway with a TWLTL between
New York Avenue and Prospect Avenue.
Reducing the number of lanes along Jackson Street from four to three in Alternative 2B would reduce the
amount of aid received by the City from WisDOT for connecting highways. Based off of year 2020
payments, converting to the three lane cross section for 0.65 miles would reduce the connecting
highways funding by $4,718.02 per year.
The concept drawing for Alternative 2B is shown in the attached Exhibit 3.
The traffic operations analysis for the study intersections during the morning and evening peak hours in
the design year of 2045 resulted in the overall intersection LOS, intersection average delay per vehicle,
and maximum north/south queues shown in Table 2.
5
The overall intersection LOS in the design year of 2045 is expected to be similar for all three alternatives,
with scores in the LOS ‘A’ to LOS ‘B’ range. Alternatives 2A and 2B are expected to experience a slight
increase in average delay per vehicle and an increase in the maximum queue lengths for northbound and
southbound traffic, when compared to Alternative 1. At New York Avenue, Alternative 2B is expected to
experience a decrease in the maximum queue length for southbound traffic.
Sample communities across the country have identified a maximum upper limit of up to 25,000 vpd for
consideration of a roadway redesign from a four-lane to a three-lane cross-section. FHWA recommends
an upper limit of 20,000 vpd for consideration of a three-lane cross section and the WisDOT FDM
recommends an upper limit of 17,500 vpd. Jackson Street, south of New York Avenue is expected to
experience a design year AADT of 13,400 vpd and an AADT of 18,650 vpd north of New York Avenue.
Although the segment north of New York Avenue is above the upper AADT threshold recommended by
WisDOT, the intersection analysis suggests that intersection operations at New York Avenue can be
expected to provide an acceptable LOS when redesigned.
Table 2: Comparison of Year 2045 Expected Intersection Traffic Operations
B B B A B B B B B
Intersection
Ave Delay (sec) 11.4 12.6 12.6 9.7 10.8 11.3 13.8 16.1 13.7
Maximum N/S
Queue (Feet)
Evening Peak Hour
Intersection
Level of Service B B B A A A B B B
Intersection
Ave Delay (sec) 14.4 16.5 16.5 7.9 9.5 9.6 12.0 13.6 12.6
Maximum N/S
Queue (Feet)
The multimodal traffic safety and quality of life study evaluated the safety and operations of the existing
corridor geometrics and multiple potential corridor improvements to identify recommended treatments for
improving the quality of life along the corridor and identifying the impacts to safety, travel speeds, and
operation. Table 3 provides a qualitative summary of the expected impact that each Alternative will have
on the evaluation criteria. Additional details of the expected impact that each alternative will have on
operations, safety, and vehicle speeds can be found in this report.
Alternative 1 is expected to operate with a higher roadway reserve capacity for through traffic than the
other two alternatives but provide less improvements to safety and the reduction of travel speeds when
compared to the other two alternatives.
Alternative 2A is expected to operate with a lower reserve capacity for through traffic but still maintain an
acceptable LOS with higher intersection maximum queue lengths than Alternatives 1 and 2B. Alternative
2A provides the highest potential safety improvement, greatest reduction in travel speeds, needed space
for snow storage, easier ingress/egress from corridor driveways, additional pedestrian accommodations,
and increased buffer space between vehicles and pedestrians. The existing longitudinal pavement joints
will not align with the proposed pavement markings in Alternative 2A, which can lead to driver confusion
especially during wet pavement conditions.
Alternative 2B provides the same benefits for residents south of New York Avenue as Alternative 2A,
related to safety improvement, reduction in travel speeds, needed space for snow storage, easier
ingress/egress from corridor driveways, additional pedestrian accommodations, and increased buffer
6
space between vehicles and pedestrians. North of New York Avenue, Alternative 2B limits the potential
for safety and speed improvements to that of Alternative 1 but provides more roadway through capacity
than Alternative 2A in the segment where design-year AADT levels are expected to exceed the WisDOT-
recommended upper threshold for the consideration of a three-lane cross-section. The existing
longitudinal pavement joints will not align with the proposed pavement markings in Alternative 2B, which
can lead to driver confusion especially during wet pavement conditions.
Table 3: Comparison of Alternatives
Cross-Section Redesign with Two-
Way Left-Turn Lane
Redesign with Two-
Way Left-Turn Lane
Safety
Vehicular Speeds
Snow Storage
Driveway Access
Noise
Public Feedback
Cost* $70K - $80K $180K - $230K $130K - $180k
Qualitative Comparison Scale:
*Costs for Alternatives 2A and 2B include a range for the inclusion of either reconstructed or painted bump-outs.
Recommendation: It is recommended that Alternative 2A be implemented along the Historic Jackson
Street study corridor. The redesigned cross-section is a better solution for the City compared to the
existing four-lane highway design in a built-up urban area with pedestrian and numerous driveway traffic
conflicts. Alternative 2A is expected to provide the greatest safety improvement among the three
alternatives along the corridor by improving left-turn offsets, reducing travel speeds and the severity of
injury-related crashes, and reducing the potential for pedestrian-related crashes. It simplifies
ingress/egress at the 148 private curb openings along the corridor. The buffer space between the travel
lane and the curb increases the available snow storage space in winter and provides greater separation
between the travel way and sidewalk, creating a more inviting sidewalk space for pedestrians. All primary
intersection traffic movements are expected to continue to operate at an acceptable LOS ‘D’ or better and
the recommendation is consistent with information provided in the City’s Bicycle and Pedestrian Master
Plan. In addition, Alternative 2A does a better job of addressing the comments and concerns expressed
by the public at the public engagement sessions and stakeholder meetings. The Jackson Street redesign
provides a proven opportunity to enhance safety for vehicular traffic, as well as pedestrians and bicyclists,
while also enhancing the quality of life in the adjacent residential neighborhood.
7
At the request of the City, consideration was given to a phased approach for implementing improvements
along Jackson Street. A potential phased improvement moving from Alternative 1 to Alternative 2B to
Alternative 2A could include the following steps.
1. Installation of speed feedback signs (similar to Alternative 1).
2. Conversion of the existing roadway to a three-lane cross section with center left-turn lane from
Church Avenue to New York Avenue (similar to Alternative 2B).
3. Conversion of the existing roadway to a three-lane cross section with center left-turn lane from
New York Avenue to Murdock Avenue (similar to Alternative 2A).
Additionally, the curb bump-outs included in Alternatives 2A and 2B could be constructed at a later date
as part of a phased approach. The phased implementation plan is feasible and would allow for an
opportunity to measure the performance of the improvements prior to implementing the next roadway
improvement. On the other hand, implementing improvements in this manner would have the following
drawbacks.
First, the speed feedback signs under Alternative 1 are recommended as overhead signs, making them
more visible to drivers within a four-lane cross section. Under the three-lane cross section of Alternative
2A, the speed feedback signs could be post-mounted on the side of the roadway. Using the phased
implementation would result in either post-mounted signs that are less effective as an initial improvement
in the four-lane cross section, or an increase in the cost of an ultimate three-lane design under Alternative
2A to include overhead signing. It is recommended that if a phased approach is used, overhead signing
be installed for improved sign visibility.
The second drawback is the cumulative impact of the improvements would not be fully realized until the
final improvement is made. Each of the improvements suggested with Alternative 2A has its individual
impact on speeds and safety, but the cumulative effect when combined together and implemented along
the entire length of the corridor can be more powerful in redefining the roadway as an urban street as
opposed to a higher-speed highway.
A third drawback is the need to restripe the area surrounding the New York Avenue intersection multiple
times. The pavement markings applied under the second step, reflecting the design shown in Alternative
2B, would need to be removed for the third step, continuing the three-lane cross section north to Murdock
Avenue.
8
Introduction
The City of Oshkosh retained Ayres Associates to conduct a traffic safety and quality of life study along
the Jackson Street corridor from Church Avenue to Murdock Avenue. Existing traffic speed and safety
data indicate there is a need to tame traffic in this residential neighborhood that will enhance safety for all
users, and improve mobility for vehicles, pedestrians, and bicyclists. The study summarizes existing
travel speeds, safety, and operation of the corridor and identifies several roadway cross-section
improvement alternatives. For each alternative, summaries of existing and future year traffic operation
are evaluated to provide potential impacts on travel speeds, safety, and neighborhood quality of life.
Additional information is provided on the public engagement process used during the study and feedback
received from citizens.
A land use, zoning, urban design, and transportation plan for the area between I-41 and Murdock
Avenue, north of the study corridor, is underway concurrently with this traffic safety and quality of life
study. Because both studies are located along the Jackson Street corridor, the public engagement
process was coordinated and included presentations on both studies, allowing attendees to comment on
both study corridors. The corridor study to the north is summarized in a separate document, but
references to the other study area can be found in the public engagement portion of this report.
Study Area
The location of the Jackson Street study corridor is shown in Figure 3.
Figure 3: Study Area
Study Area
N
9
Jackson Street is a north/south, four-lane urban roadway, with a 30-mph posted speed limit. The street is
also identified as a “connecting highway” by the Wisconsin Department of Transportation (WisDOT) as
US 45 and STH 76. A connecting highway is a marked route of the state trunk highway system over
streets or highways in any municipality for which the municipality will be responsible for maintenance and
traffic control and are eligible for aid payments under Wis. Stat. 86.32. The corridor also serves as the
signed alternate route for I-41. The corridor includes 17 intersections, including Murdock Avenue and
Church Avenue, as well as 148 private curb openings serving 165 residential properties. The corridor
travels through a predominantly residential neighborhood. The presence of Merrill Elementary/Middle
School to the east and the University of Wisconsin-Oshkosh to the west creates pedestrian activity along
the corridor, with a high number of students of all ages. Traffic signal-controlled intersections are located
at New York Avenue, Irving Avenue, and Church Avenue.
The study segment of Jackson Street was reconstructed by WisDOT in 2001, expanding the street from
two lanes to four lanes with a greatly reduced terrace width. The width of the roadway is 45’, within a 60’
right-of-way from Church Avenue to New York Avenue and a 66’ right-of-way from New York Avenue to
Hobbs Avenue. The intent of this study is not a full roadway reconstruction as the existing roadway still
has useable life.
Traffic Volumes
Existing Traffic
The following information summarizes the most recent 2019 annual average daily traffic counts (AADT)
collected by WisDOT. The count data summarizes the number of vehicles per day (vpd).
• 2019 Existing Annual Average Daily Traffic:
o Murdock Avenue to New York Avenue: 17,100 vpd
o New York Avenue to Irving Avenue: 12,300 vpd
o Irving Avenue to Church Avenue: 10,300 vpd
Hourly traffic volumes on Jackson Street exhibit typical urban morning and evening peak hour directional
flow patterns, with an increased volume of southbound traffic during the morning rush hour and an
increased volume of both northbound and southbound traffic during the evening rush hour. Figure 4
identifies the hourly traffic distribution northbound (blue) and southbound (red) on Jackson Street south of
Irving Avenue.
10
Figure 4: Jackson Street Hourly Traffic Distribution South of Irving Avenue
Figure 5 identifies a similar hourly traffic distribution on Jackson Street south of Hobbs Avenue.
Figure 5: Jackson Street Hourly Traffic Distribution South of Hobbs Avenue
11
Jackson Street serves as a southbound bus route for Go Transit Bus Route 2 “Main/Jackson.” The route
runs Monday through Saturday from 6:15am to 6:45pm with a 30-minute frequency. Bus stops are
located within the study area along the west side of Jackson Street at the following side streets:
• Stanley Avenue
• Nevada Avenue
• New York Avenue
• Scott Avenue
• Irving Avenue
Intersection turning movement counts were gathered at three study intersections from 3:00pm – 6:00pm
on Monday, November 18, 2019; 6:00am – 9:00am on Tuesday, November 19, 2019; and 6:00am –
9:00am on Wednesday, November 20, 2019 when surrounding schools were in session. The Jackson
Street study intersections included:
• New York Avenue
• Irving Avenue
• Church Avenue
The intersection turning movement counts included vehicular, bicycle, and pedestrian traffic. The peak
hour intersection traffic count data is shown in Figure 6. As an overall downtown system, the morning
peak hour occurs approximately from 7:15am – 8:15am with the evening peak hour occurring
approximately from 4:00pm – 5:00pm. Trucks compose approximately 2% of traffic along Jackson Street
during the peak hours. The intersection turning movement count data is included in Appendix A of the
technical supplement.
As the I-41 Alternate Route, Jackson Street experiences an increase in traffic volumes when major
incidents cause a closure of I-41. From discussion with City Police Department staff, it is estimated these
incidents occur approximately four or five times each year.
12
Figure 6: 2019 Existing Peak Hour Traffic Volumes
13
Traffic Forecast
Jackson Street historical daily traffic counts along the study corridor indicate that traffic volumes have
remained relatively constant over the last 20 years. As shown in Figure 7, daily traffic counts at three
locations along the corridor remained relatively flat.
Figure 7: Jackson Street Historical Daily Traffic Pattern
Forecasted 2045 horizon year traffic projections were provided by the East Central Wisconsin Regional
Planning Commission (ECWRPC). These forecasted volumes indicate an average annual traffic growth
rate of approximately 0.35% per year on Jackson Street, with slightly lower growth on the intersecting
streets. Applying the growth rates provided by ECWRPC to the 2019 AADTs results in the expected
2045 daily traffic volumes shown below and the 2045 intersection turning movement volumes shown in
Figure 8.
• 2045 Forecasted Annual Average Daily Traffic:
o Murdock Avenue to New York Avenue: 18,650 vpd
o New York Avenue to Irving Avenue: 13,400 vpd
o Irving Avenue to Church Avenue: 11,250 vpd
14
Figure 8: 2045 Peak Hour Traffic Volumes
15
Existing Conditions
Traffic Speeds
Residents along Jackson Street have expressed concerns about their neighborhood quality of life being
negatively impacted by vehicular traffic speeds. To evaluate existing conditions, traffic speed data was
collected at two locations in the study corridor on Monday, November 18 through Wednesday November
20, 2019. Speed data was collected at two locations as shown in Figure 9: 1) “south location” between
Scott Avenue and Lincoln Avenue and 2) “north location” between Nevada and Congress Avenue.
Figure 9: Traffic Speed Data Collection Locations
The speed data identifies the 85th percentile speed and the percent of vehicles exceeding the posted 30
mph speed limit. The results of the speed study indicate the 85th percentile speeds range between 35
mph and 40 mph and 68% to 92% of traffic exceeds the posted 30 mph speed limit, depending on the
location and the direction of travel, as shown in Table 4.
Speed Data
Locations
N
16
Table 4: Jackson Street Collected Travel Speeds
Northbound 86.7% 39 mph
Southbound 91.6% 40 mph
Northbound
82.4% 39 mph
Southbound 68.1% 35 mph
In addition to the speed data summarized above, the speed curves shown below in Figure 10 and Figure
11 highlight the distribution of traffic speeds at each location by direction of travel. The 30 mph posted
speed limit is noted in red.
Figure 10: Jackson Street Speed Distribution at North Location
17
Figure 11: Jackson Street Speed Distribution at South Location
Crash History
A five-year summary of street segment and intersection crashes reported along Jackson Street from the
Church Avenue intersection to the Murdock Avenue intersection was obtained from the University of
Wisconsin-Madison Traffic Operations and Safety Laboratory (UW TOPS Lab) from 2014 through 2018.
During the study period, the corridor reached a peak of 75 total crashes in 2016. The total number of
crashes per year is summarized in Table 5.
18
Table 5: Jackson Street Reported Crashes by Location
*Left-turn prohibition implemented in 2018 for northbound/southbound left turns weekdays from 3pm to 7pm.
Overall, the total number of corridor crashes has been relatively stable aside from a reduction in 2018.
The highest intersection crash locations were as follows:
• Murdock Avenue: Average 16 crashes per year
• New York Avenue: Average 13 crashes per year
• Irving Avenue: Average 6 crashes per year
One pedestrian-involved crash was reported at Hobbs Avenue, one at Bent Avenue, and two at New York
Avenue.
Based on annual average daily traffic (AADT) counts collected in 2019, the crash rate for the Jackson
Street intersection with the Murdock Avenue roundabout was 1.56 crashes per million entering vehicles
(MEV). The crash rate for the Jackson Street intersection with New York Avenue was 2.04 crashes per
MEV. The crash rate for the Jackson Street intersection with Irving Avenue was 1.08 crashes per MEV.
These crash rates are higher than the most recent available statewide average urban crash rate of 0.96
crashes per MEV.
The primary collision patterns involved left-turn, rear-end, and lane-changing/sideswipe crashes. The
prevalence of left-turn crashes at the Jackson Street intersection with New York Avenue lead to a
decision in 2018 to prohibit northbound and southbound left turns from Jackson Street onto New York
Avenue weekdays from 3pm to 7pm. During the 12-month period following the implementation of the left-
turn restriction, the Jackson Street intersection with New York Avenue experienced five crashes.
2014 2015 2016 2017 2018
Murdock Ave 27 23 18 9 3 80 16
Hobbs Ave 0 1 2 1 2 6 1
Stanley Ave 0 1 1 0 1 3 1
Bent Ave 0 0 5 1 1 7 1
Nevada Ave 1 0 2 1 0 4 1
Congress Ave 1 2 1 4 2 10 2
Annex Ave 2 2 0 0 1 5 1
New York Ave*13 15 17 12 9 66 13
Saratoga Ave 1 0 0 1 0 2 0
Prospect Ave 4 3 5 7 1 20 4
Melvin Ave 1 2 1 0 2 6 1
Scott Ave 1 5 5 5 2 18 4
Lincoln Ave 2 3 3 1 3 12 2
Irving Ave 1 4 7 10 7 29 6
Amherst Ave 0 0 0 0 1 1 0
Union Ave 1 0 2 3 1 7 1
Church Ave 3 2 3 6 8 22 4
Segments Between
Intersections 19 4
Total 65 68 75 63 46 317
Reported Crashes per YearLocation Total Yearly
Average
19
Traffic Operations
Methodology
For the purpose of this study, LOS ‘D’ as defined in the Highway Capacity Manual 6th Edition (HCM 6th
Edition) is used as the threshold for acceptable peak hour intersection operating conditions. Intersection
operation is typically quantified based on its LOS during peak traffic volume periods. The LOS is
determined based on the average amount of delay experienced by each vehicle entering an intersection
during the study period and is categorized by grades ‘A’ through ‘F’. As a National Highway System
Route, WisDOT identifies the desirable LOS as LOS ‘D’ or better.
Table 6 provides a brief summary of the different intersection LOS.
Table 6: Intersection Level of Service Description
A ≤ 10 ≤ 10
B > 10 - 20 > 10 - 15
C > 20 - 35 > 15 - 25 through intersection
D > 35 - 55 > 25 - 35
E > 55 - 80 > 35 - 50
F > 80
Or V/C >1.0
> 50
Or V/C >1.0
The 95th percentile queue is also included in the operations summary as an additional performance
measure. The 95th percentile queue (sometimes referred to as the “maximum probable queue”)
represents the distance from the stop bar at which 95% of all queues for a given movement within the
analysis time period are expected to be contained. In other words, there is only a 5% probability that the
95th percentile queue length will be exceeded during the analysis period.
Intersection operation for traffic signal control at the study intersections were analyzed using Synchro 10
software. The results presented within this report are based on HCM 6th Edition equations and
methodologies. The HCM analysis outputs are shown in Appendix B of the technical supplement.
2019 Existing Operations
Existing traffic in 2019 operates with all study intersection movements at LOS ‘C’ or better during both the
morning and evening peak hours with the exception of the eastbound left turn movement on Church
Avenue in the evening peak hour. All northbound and southbound movements at the Church Avenue,
Irving Avenue, and New York Avenue intersections operate at LOS ‘A’ except for the southbound
movements at New York Avenue. These southbound movements operate at LOS ‘B’ for both the
morning and evening peak hours. All eastbound and westbound movements at the three intersections
operate at LOS ‘C’ with the exception of the eastbound left turn on Church Avenue as previously stated.
20
In summary, all movements operate at an acceptable LOS ‘D’ or better during both peak hours, which can
be seen in Table 7 (2019 Existing AM Peak Hour Traffic Operations) and Table 8 (2019 Existing PM Peak
Hour Traffic Operations).
Table 7: 2019 Existing AM Peak Hour Traffic Operations
Table 8: 2019 Existing PM Peak Hour Traffic Operations
2045 No-Build Operations
Background traffic in 2045 under a “Do Nothing” condition is expected to continue to operate with all
study intersection movements at LOS ‘C’ or better during both the morning and evening peak hours with
the exception of the same eastbound left turn movement on Church Avenue in the evening peak hour.
The LOS operations of the movements at the three study intersections are expected to remain consistent
with the existing 2019 traffic operations, with slight increases in average vehicle delay due to increases in
volume. All queue lengths for the three intersections are expected to remain unchanged or increase by
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C A B
Delay (sec)29.0 29.9 0.0 11.2
Queue (ft)25'25'25'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C C C A
Delay (sec)33.1 30.8 32.1 28.1 9.6
Queue (ft)25'50'150'50'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C B
Delay (sec)30.7 31.2 13.5
Queue (ft)25'50'--
OVERALL
OVERALL
OVERALL
150'75'100'125'
C
28.8
175'
Irving
Avenue Signal 3.3
75'
A
2019 Existing AM Peak Hour Traffic Operations - Jackson Street
Movement
Church
Avenue Signal
A
5.7
A
8.5
C
27.6
C
28.3
MOEControlIntersection
75'
Movement
A
3.9
75'
C
28.7
150'
C
29.0
175'
A
5.2
75'
Movement
New York
Avenue Signal
B
11.2
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS D C A B
Delay (sec)37.1 28.5 0.0 14.3
Queue (ft)50'50'50'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C C C A
Delay (sec)31.4 28.9 29.3 28.2 7.9
Queue (ft)50'50'100'75'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C B
Delay (sec)30.8 28.4 11.8
Queue (ft)75'50'--
OVERALL
OVERALL
OVERALLMOEControlIntersection
Movement
New York
Avenue Signal
C C
26.9 27.4
5.1
100'
Movement
3.7
50'
Irving
Avenue Signal
C A A
28.0
75'
3.8
100'
A
5.9
B
10.3
A A
26.6 34.0 9.6
100'225'125'
125'125'100'150'
2019 Existing PM Peak Hour Traffic Operations - Jackson Street
Movement
Church
Avenue Signal
C C
21
25 feet, the equivalent of one vehicle. Overall, the movements at the three study intersections are
expected to continue to operate at an acceptable LOS ‘D’ or better during both the peak hour periods
which can be seen in Table 9 (2045 No-Build AM Peak Hour Traffic Operations) and Table 10 (2045 No-
Build PM Peak Hour Traffic Operations).
Table 9: 2045 No-Build AM Peak Hour Traffic Operations
Table 10: 2045 No-Build PM Peak Hour Traffic Operations
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C A B
Delay (sec)29.3 30.1 0.0 11.4
Queue (ft)25'25'25'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C C C A
Delay (sec)33.4 31.3 32.4 28.2 9.7
Queue (ft)25'50'150'50'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C B
Delay (sec)31.2 32.0 13.8
Queue (ft)50'50'--
OVERALL
OVERALL
OVERALL
75'
4.1
New York
Avenue Signal
C C A B
29.4 29.2 5.3 11.9
175'175'75'
MOEControlIntersection
75'
6.5
A
A
Movement
Irving
Avenue Signal
C
29.0
75'
Movement
A
3.3
2045 No-Build AM Peak Hour Traffic Operations - Jackson Street
Movement
Church
Avenue Signal
C C A
28.5 27.9 8.6
125'100'75'175'
200'
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS D C A B
Delay (sec)38.5 28.5 0.0 14.4
Queue (ft)50'50'50'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C C C A
Delay (sec)31.6 29.1 29.5 28.3 7.9
Queue (ft)50'50'100'75'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C B
Delay (sec)31.3 29.0 12.0
Queue (ft)75'50'--
OVERALL
OVERALL
OVERALLMOEControlIntersection
A
28.1 3.9 3.8
75'100'75'
2045 No-Build PM Peak Hour Traffic Operations - Jackson Street
Movement
Church
Avenue Signal
C C A A
26.6 34.9 9.8 5.4
100'225'125'125'
Movement
New York
Avenue Signal
C C A B
27.2 27.5 6.1 10.7
125'150'100'150'
Movement
Irving
Avenue Signal
C A
22
Alternatives Analysis
Methodology
The multimodal traffic safety and quality of life study evaluated traffic safety and operations of the existing
corridor geometrics and multiple potential corridor improvements to identify the recommended treatments
for improving the safety, travel speeds, operations, and quality of life along the corridor. This evaluation
included traffic operations analysis using Synchro software, the evaluation of safety using the Federal
Highway Administration’s (FHWA) Crash Modification Factors Clearinghouse, and estimating impacts on
vehicular travel speeds using FHWA published research.
Alternatives
The study identified three corridor improvement alternatives for consideration.
Alternative 1: Maintain Existing Cross-Section
Description
Alternative 1 maintains the existing four-lane cross-section along Jackson Street between Church Avenue
and Murdock Avenue, as shown in Figure 12. The alternative would include the installation of speed
feedback signs on overhead poles to increase motorist’s awareness of their speed and encourage a
reduction in travel speed. Two speed feedback signs would be installed in each direction of travel; one
shortly after entering the study corridor and a second near Scott Avenue to reinforce the need to comply
with the posted speed limit. Maintaining the existing cross-section limits the ability to incorporate
geometric improvements along the corridor. The concept drawing for Alternative 1 is shown in the
attached Exhibit 1.
Figure 12: Alternative 1 Cross-Section
Traffic Operations
Alternative 1 was analyzed for the expected intersection delay and queuing during the morning and
evening peak hours using the base year 2019 data and the forecasted 2045 traffic volumes. Because no
geometric changes were made to the corridor, the traffic operations are expected to remain consistent
with the existing and “Do Nothing” scenarios.
2019: The study intersections operate in Alternative 1 under 2019 volumes with all study intersection
movements at LOS ‘C’ or better during both the morning and evening peak hours with the exception of
the eastbound left turn movement on Church Avenue in the evening peak hour. All northbound and
23
southbound movements at the Church Avenue, Irving Avenue, and New York Avenue intersections
operate at LOS ‘A’ except for the southbound movements at New York Avenue. These southbound
movements operate at LOS ‘B’ for both the morning and evening peak hours. All eastbound and
westbound movements at the three intersections operate at LOS ‘C’ with the exception of the eastbound
left turn on Church Avenue as previously stated. Queue lengths along Jackson Street are expected to
reach a maximum of 125 feet northbound at Church Avenue during the morning peak hour and 175 feet
southbound at New York Avenue during the evening peak hour. In summary, all movements operate at
an acceptable LOS ‘D’ or better during both peak hours, which can be seen in Table 11 and Table 12.
Table 11: 2019 Alternative 1 AM Peak Hour Traffic Operations
Table 12: 2019 Alternative 1 PM Peak Hour Traffic Operations
2045: The study intersections are expected to operate in Alternative 1 under 2045 volumes with all
movements at LOS ‘C’ or better during both the morning and evening peak hours with the exception of
the same eastbound left turn movement on Church Avenue in the evening peak hour. The LOS
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C A B
Delay (sec)29.0 29.9 0.0 11.2
Queue (ft)25'25'25'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C C C A
Delay (sec)33.1 30.8 32.1 28.1 9.6
Queue (ft)25'50'150'50'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C B
Delay (sec)30.7 31.2 13.5
Queue (ft)25'50'--150'175'75'175'
New York
Avenue Signal
C C A B
28.7 29.0 5.2 11.2
Movement OVERALL
75'75'75'
28.8 3.3 3.9Irving
Avenue Signal
C A A
Movement OVERALL
125'100'75'150'
28.3 27.6 8.5 5.7Church
Avenue Signal
C C A A
2019 Alternative 1 AM Peak Hour Traffic Operations - Jackson Street
Intersection Control MOE Movement OVERALL
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS D C A B
Delay (sec)37.1 28.5 0.0 14.3
Queue (ft)50'50'50'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C C C A
Delay (sec)31.4 28.9 29.3 28.2 7.9
Queue (ft)50'50'100'75'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C B
Delay (sec)30.8 28.4 11.8
Queue (ft)75'50'--125'125'100'150'
26.9 27.4 5.9 10.3New York
Avenue Signal
C C A B
Movement OVERALL
28.0 3.8 3.7Irving
Avenue Signal
C A A
75'100'50'
Movement OVERALL
100'225'125'100'
26.6 34.0 9.6 5.1Church
Avenue Signal
C C A A
Intersection Control MOE Movement OVERALL
2019 Alternative 1 PM Peak Hour Traffic Operations - Jackson Street
24
operations at the three study intersections are expected to remain consistent with the existing 2019 traffic
operations with slight increases in average vehicle delay due to increases in volume. All queue lengths
for the three intersections are expected to remain unchanged or increase by 25 feet, the equivalent of one
vehicle. Overall, the movements at the three study intersections are expected to continue to operate at
an acceptable LOS ‘D’ or better during both the peak hour periods which can be seen in Table 13 and
Table 14.
Table 13: 2045 Alternative 1 AM Peak Hour Traffic Operations
Table 14: 2045 Alternative 1 PM Peak Hour Traffic Operations
Travel Speeds
Alternative 1 incorporates speed feedback signs for communicating travel speeds to motorists to
encourage compliance with the posted speed limit. According to FHWA, research shows that speed
feedback signs have been effective at reducing speeds by 5mph. This conclusion is based on before and
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C A B
Delay (sec)29.3 30.1 0.0 11.4
Queue (ft)25'25'25'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C C C A
Delay (sec)33.4 31.3 32.4 28.2 9.7
Queue (ft)25'50'150'50'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C B
Delay (sec)31.2 32.0 13.8
Queue (ft)50'50'--75'200'175'175'
New York
Avenue Signal
C C A B
29.4 29.2 5.3 11.9
Movement OVERALL
75'75'75'
A
29.0 3.3 4.1
OVERALL
Irving
Avenue Signal
C A
175'
Movement
27.9 8.6 6.5
125'100'75'
Signal
C C A A
28.5
MOE Movement OVERALL
Church
Avenue
2045 Alternative 1 AM Peak Hour Traffic Operations - Jackson Street
Intersection Control
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS D C A B
Delay (sec)38.5 28.5 0.0 14.4
Queue (ft)50'50'50'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C C C A
Delay (sec)31.6 29.1 29.5 28.3 7.9
Queue (ft)50'50'100'75'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C B
Delay (sec)31.3 29.0 12.0
Queue (ft)75'50'--
10.7
125'150'100'150'
C A B
27.2 27.5 6.1
OVERALL
New York
Avenue Signal
C
75'100'75'
Movement
Signal
C A A
28.1 3.9 3.8Irving
Avenue
Movement OVERALL
100'225'
26.6 34.9Church
Avenue Signal
C C A A
9.8 5.4
125'125'
Control MOE Movement OVERALLIntersection
2045 Alternative 1 PM Peak Hour Traffic Operations - Jackson Street
25
after studies that indicated average and 85th percentile travel speeds were reduced between 1mph and
7mph depending on the roadway location and characteristics.
Safety
FHWA’s Crash Modification Factor Clearinghouse provides data related to the expected reduction in
crashes based on a wide variety of roadway treatments. Although the studies related to speed feedback
signs were based on rural study locations, the data indicates that these signs can be expected to reduce
the number of all crash types by 5%.
Estimated Cost
The estimated cost of Alternative 1 is expected to be in the range of $70,000 to $80,000 as shown in
Appendix C of the technical supplement.
Alternative 2A: Full Roadway Redesign with Two-Way Left-Turn Lane
Description
Alternative 2A reconfigures the existing Jackson Street four-lane cross-section between Church Avenue
and Murdock Avenue to one 11’-wide through lane in each direction, a 13’-wide center two-way left-turn
lane, and a 5’ curb buffer area on each side of the street, as shown in Figure 13. This design changes
the roadway image from a highway to an urban street. The term “roadway redesign” used here is
interchangeable with the term “road diet” often used in other studies and referenced elsewhere in
supporting materials. Along southbound Jackson Street, the two lanes exiting the roundabout at Murdock
Avenue would merge to a single lane prior to the intersection with Stanley Avenue. Northbound Jackson
Street would expand from one lane to two lanes near the intersection with Hobbs Avenue. This design
would also allow for dedicated left-turn lanes to be included at the signalized intersections with a shared
through/right-turn lane in each direction. Left turns would be prohibited from northbound Jackson Street
to westbound Nevada Avenue to avoid potential left-turning safety conflicts with southbound traffic.
Consideration was given to the 5’ curb buffer area as a marked bicycle lane, but it was determined
through discussions with City staff that it was not desirable to mark this area as a designated bike lane.
First, the City of Oshkosh Bicycle and Pedestrian Master Plan 2019 does not identify Jackson Street as a
recommended bicycle facility. N. Main Street, located a ¼ mile to the east and parallel to Jackson Street,
is a recommended bike route in the master plan that provides marked bicycle lanes. Second, the 5’ curb
buffer space would include a 1’ gutter pan, resulting in an undesirable longitudinal joint within the 5’ width.
Figure 13: Alternative 2A Cross-Section
Continental-style crosswalk pavement markings would be installed at the unsignalized intersections with
Prospect Avenue, Scott Avenue, and Lincoln Avenue, along with pedestrian crossing signs at each of
26
these locations. A crosswalk would also be added on the north side of the Jackson Street intersection
with Congress Avenue. This crossing would feature rectangular rapid flashing beacons (RRFB) to draw
more attention to the presence of pedestrians and a pedestrian refuge island in the median. Continental-
style crosswalks provide increased visibility for oncoming traffic and sight impaired pedestrians. The
existing crosswalk at the Jackson Street intersection with Hobbs Avenue would be removed for
pedestrian safety purposes given the four lanes of traffic, the presence of turning vehicles, and the lane
add/drop conditions that would occur with this alternative. The combination of these factors results in
several decision points for motorists making it difficult for pedestrians to safely cross the street.
The narrowed travel way of Alternative 2A allows for consideration of curb bump-outs at the locations
where pedestrian crosswalks will be added at Lincoln Avenue, Scott Avenue, Prospect Avenue, and
Congress Avenue. These bump-outs could involve reconstruction of the curb and gutter and sidewalk
extension, or as a painted bump-out with bollards that would leave the existing curb and gutter in its
existing location. The painted bump-out with bollards presents challenges with snow removal and the
City has expressed that this option is not desired. An example of a painted bump-out is provided in
Figure 14. The reconstruction option provides an improved raised curb refuge area for pedestrians and
eliminates the potential for damage to the bollards but would require potential drainage improvements.
Figure 14: Painted Bump-Out Example
Alternative 2A would include the installation of speed feedback signs on side-mounted poles to make
motorists aware of their speed and thereby encourage a reduction in travel speed. Two speed feedback
signs would be installed for each direction of travel; one shortly after entering the study corridor and a
second near Scott Avenue to reinforce the encouragement to comply with the posted speed limit.
The concept drawing for Alternative 2A is shown in the attached Exhibit 2.
Traffic Operations
Alternative 2A was analyzed for expected intersection delay and queuing impacts during the morning and
evening peak hours using the base year 2019 data and the forecasted 2045 traffic volumes.
2019: The study intersections are expected to operate under 2019 volumes with all study intersection
movements at LOS ‘C’ or better during both the morning and evening peak hours with the exception of
the eastbound left turn movement on Church Avenue in the evening peak hour. All northbound and
southbound movements at the Church Avenue, Irving Avenue, and New York Avenue intersections are
27
expected to operate at LOS ‘B’ or better. All eastbound and westbound movements at the three
intersections operate at LOS ‘C’ with the exception of the eastbound left turn on Church Avenue as
previously stated. Queue lengths along Jackson Street are expected to increase when compared to
Alternative 1 and reach a maximum of 300 feet northbound at Church Avenue during the evening peak
hour and 425 feet southbound at New York Avenue during the morning peak hour. In summary, all
movements operate at an acceptable LOS ‘D’ or better during both peak hours, which can be seen in
Table 15 and Table 16.
Table 15: 2019 Alternative 2A AM Peak Hour Traffic Operations
Table 16: 2019 Alternative 2A PM Peak Hour Traffic Operations
The street redesign included in Alternative 2A provides for an improved offset of opposing northbound
and southbound left-turn lanes on Jackson Street. This will allow consideration of removing the existing
left-turn prohibition from Jackson Street to New York Avenue weekdays during the 3pm to 7pm time
period.
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C B A A A B
Delay (sec)29.0 29.9 13.9 9.8 0.0 7.7 9.5
Queue (ft)25'25'25'125'25'75'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C C C A A B
Delay (sec)33.1 30.8 32.1 28.1 5.5 4.2 10.5
Queue (ft)25'50'150'50'25'25'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C B B B
Delay (sec)30.9 31.3 15.2 13.3 16.6
Queue (ft)25'50'25'50'--
MOEControlIntersection OVERALL
OVERALL
OVERALL
New York
Avenue Signal
C C A B
150'175'150'425'
28.8 29.2 6.7 16.7
4.1 5.1
Movement
7.1
Movement
Irving
Avenue Signal
C A A
75'125'125'
28.8
2019 Alternative 2A AM Peak Hour Traffic Operations - Jackson Street
Movement
Church
Avenue Signal
C C A
125'100'275'
28.3 27.6
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS D C B B A B B
Delay (sec)37.2 28.5 10.2 13.0 0.0 12.4 14.5
Queue (ft)50'50'25'300'50'75'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C C C A A A
Delay (sec)31.4 29.0 29.3 28.2 4.0 7.2 9.2
Queue (ft)50'50'100'75'25'25'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C B B B
Delay (sec)30.9 28.5 12.2 19.0 15.3
Queue (ft)75'50'25'25'--
OVERALL
OVERALL
OVERALLMOEControlIntersection
2019 Alternative 2A PM Peak Hour Traffic Operations - Jackson Street
Movement
125'125'275'375'
New York
Avenue Signal
C C A B
26.9 27.4 10.0 14.7
Movement
28.0 5.8 4.0Irving
Avenue Signal
C A A
75'225'100'
Movement
26.7 34.1 5.3Church
Avenue Signal
C C A
100'225'225'
28
2045: The study intersections are expected to operate in Alternative 2A with all traffic movements at LOS
‘C’ or higher during both the morning and evening peak hours with the exception of the eastbound left
turn movement on Church Avenue in the evening peak hour and the eastbound and westbound
approaches of New York Avenue during the morning and evening peak hours, which are expected to
operate at LOS ‘D’. Queue lengths along Jackson Street are expected to increase when compared to
Alternative 1 and reach a maximum of 325 feet northbound at New York Avenue during the evening peak
hour and 425 feet southbound at New York Avenue during the morning peak hour. Overall, the
movements at the three study intersections are expected to continue to operate at an acceptable LOS ‘D’
or better during both the peak hour periods which can be seen in Table 17 and Table 18.
Table 17: 2045 Alternative 2A AM Peak Hour Traffic Operations
Table 18: 2045 Alternative 2A PM Peak Hour Traffic Operations
If the current left-turn prohibition at New York Avenue is removed under Alternative 2A, the evening peak
hour volumes can be expected to change as some through vehicles will return to making left turns in the
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C B B A A B
Delay (sec)29.3 30.1 15.8 10.1 0.0 8.4 12.6
Queue (ft)25'25'25'150'25'75'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C C C A A B
Delay (sec)33.4 31.4 32.4 28.3 6.6 4.5 10.8
Queue (ft)25'50'150'50'25'25'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS D D B A B
Delay (sec)38.1 39.3 11.0 8.9 16.1
Queue (ft)50'50'25'25'--
OVERALL
OVERALL
OVERALLMOEControlIntersection
125'425'
29.0 4.6 5.8
A B
3.8 13.3New York
Avenue Signal
D D
Movement
200'175'
38.2 38.2
28.5 27.9
Movement
Irving
Avenue 75'125'175'
Signal
C A A
2045 Alternative 2A AM Peak Hour Traffic Operations - Jackson Street
Movement
7.8
125'100'275'
Church
Avenue Signal
C C A
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS D C B B A B B
Delay (sec)38.5 28.5 10.7 13.5 0.0 13.7 16.5
Queue (ft)50'50'25'300'50'50'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C C C A A A
Delay (sec)31.6 29.1 29.5 28.3 4.4 8.4 9.5
Queue (ft)50'50'100'75'25'50'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS D D A B B
Delay (sec)38.6 35.0 8.3 12.3 13.6
Queue (ft)75'50'25'25'--
OVERALL
OVERALL
OVERALL
75'225'250'
100'225'200'
MOEControlIntersection
2045 Alternative 2A PM Peak Hour Traffic Operations - Jackson Street
Movement
325'350'150'150'
New York
Avenue Signal
C C A B
33.7 34.4 5.9 11.5
Movement
Signal
C A A
28.1 6.4 4.3Irving
Avenue
Movement
Signal
C C A
26.7 34.9 5.5Church
Avenue
29
northbound and southbound directions. For the purpose of analyzing the potential shift in traffic volumes,
it is assumed that the northbound and southbound left-turning vehicles would be similar in volume to the
left-turn volumes at the Jackson Street intersection with Irving Avenue. The analysis of these adjusted
volumes with permissive left-turn phasing indicates a very small decrease in the overall delay of the
intersection, with minor increases in the left-turn delay and queuing and decreased delay and queueing
for the through movements. The design of the intersection under Alternative 2A also provides the
opportunity to consider protected phasing if desired, recognizing that this would result in increased delay
for other movements.
Travel Speeds
Travel speeds along Jackson Street under Alternative 2A are expected to be reduced as a result of
corridor improvements. The following summarizes the potential speed reduction of each isolated
improvement, but it should be noted that the reductions are not additive. The benefit of applying more
than one traffic taming technique is synergistic in that one improvement serves to reinforce another and
add incremental benefits to create a street with reduced travel speeds. The following Alternative 2A
improvements are expected to reduce travel speeds along Jackson Street:
• Roadway Redesign: According to FHWA, several urban lane narrowing and reduction projects
have resulted in a reduction of average vehicle travel speeds of 2mph to 4mph.
• Speed Feedback Signs: As identified for Alternative 1, FHWA research shows that speed
feedback signs have been effective at reducing speeds by 5mph. This conclusion is based on
several before and after studies that found average and 85th percentile travel speeds were
reduced between 1mph and 7mph depending on the roadway location and characteristics.
• Bump-Outs: According to FHWA, bump outs have been shown to reduced average vehicle
speeds and 85th percentile speed by up to 4mph.
Safety
FHWA’s Crash Modification Factor Clearinghouse provides data related to the expected reduction in
crashes based on a wide variety of roadway treatments. As more than one safety improvement is made
along a given corridor, the potential overall impact is not additive for each isolated treatment, similar to
the previous discussion of impacts to travel speeds. But the combination of multiple safety improvements
does have incremental safety benefits, especially for multiple roadway users, and helps to create a safer
and more walkable urban street. The following Alternative 2A improvements are expected to reduce the
likelihood of crashes along Jackson Street:
• Roadway Redesign: FHWA provides crash reduction data based on multiple roadway redesign
studies that indicate the overall number of crashes along the corridor can be reduced between
19% and 25%.
• Improved Left-Turn Offset: The roadway redesign included in Alternative 2A allows for an
improved left-turn offset at intersections, converting the existing negative offset to a neutral offset
and allowing left-turning vehicles to have a better sight line for judging gaps in oncoming traffic.
Studies based on Wisconsin data have shown that improvements that create a positive left-turn
offset can reduce injury-related crashes by 35%. The improvement from a negative to a neutral
offset may be less than the 35% identified in this research but still provide improvement over the
existing condition.
• Continental-Style Crosswalk Markings: According to FHWA, continental-style crosswalk
pavement markings have been shown to reduce the likelihood of pedestrian-related crashes by
40%.
30
• Rectangular Rapid Flashing Beacons (RRFB): According to FHWA, RRFBs have been shown
to reduce the likelihood of pedestrian-related crashes at unsignalized crossings by 47%.
• Bump-Outs: Bump-outs located at unsignalized crossings in Alternative 2A have the benefit of
reducing the crossing distance for pedestrians and making the corridor more pedestrian friendly.
• Speed Feedback Signs: Although the FHWA studies related to speed feedback signs were
based on rural study locations, the data indicates that these signs can be expected to reduce the
number of all crash types by 5%.
Estimated Cost
The estimated cost of Alternative 2A was calculated for two conditions. The first assumes the curb bump-
outs are incorporated as a reconstructed curb and gutter and expanded sidewalk. The second assumes
the curb bump-outs are incorporated using colored pavement markings and bollards and that the existing
curb and gutter remains in its current location. The resulting estimated costs are expected to be in the
range of $210,000 to $230,000 for the curb and gutter reconstruction and in the range of $170,000 to
$190,000 for the pavement markings and bollards. The costs are shown in Appendix C of the technical
supplement.
Alternative 2B: Partial Roadway Redesign with Two-Way Left-Turn Lane
Description
Alternative 2B combines the Alternative 2A design south of New York Avenue with the Alternative 1
design north of New York Avenue. The existing four-lane cross-section along Jackson Street between
Church Avenue and New York Avenue would be reconfigured to one 11’-wide through lane in each
direction, a 13’-wide center two-way left-turn lane, and a 5’ curb buffer on each side of the street. This
would allow for the improvements previously described in Alternative 2A to be included south of New York
Avenue, including designated left-turn lanes at intersections and the addition of continental-style
crosswalks and curb bump-outs at Prospect Avenue, Scott Avenue, and Lincoln Avenue.
Jackson Street between New York Avenue and Murdock Avenue would remain under the existing four-
lane configuration. The only improvement along this segment would be the installation of a speed
feedback sign for southbound traffic exiting the roundabout at the Murdock Avenue intersection. The
four-lane cross-section would transition to the three-lane redesigned roadway with a TWLTL between
New York Avenue and Prospect Avenue. The concept drawing for Alternative 2B is shown in the
attached Exhibit 3.
Traffic Operations
Alternative 2B was analyzed for the expected delay and queuing during the morning and evening peak
hours using the base year 2019 data and the forecasted 2045 traffic volumes. The study intersections
under Alternative 2B will operate similar to Alternative 2A, with the major difference being the additional
southbound through lane at New York Avenue. This alternative was developed to help accommodate the
higher daily traffic volumes north of New York Avenue and provide additional capacity from New York
Avenue to Murdock Avenue.
2019: The study intersections are expected to operate under 2019 volumes with all study intersection
movements at LOS ‘C’ or better during both the morning and evening peak hours with the exception of
the eastbound left turn movement on Church Avenue in the evening peak hour. All northbound and
southbound movements at the Church Avenue, Irving Avenue, and New York Avenue intersections
operate at LOS ‘B’ or better. All eastbound and westbound movements at the three intersections operate
at LOS ‘C’ with the exception of the eastbound left turn on Church Avenue as previously stated. Queue
lengths along Jackson Street are expected to be similar to Alternative 2A with an improvement for
31
southbound traffic at New York Avenue and reach a maximum of 300 feet northbound at Church Avenue
during the evening peak hour and 275 feet southbound at Church Avenue during the morning peak hour.
In summary, all movements operate at an acceptable LOS ‘D’ or better during both peak hours, which can
be seen in Table 19 and Table 20.
Table 19: 2019 Alternative 2B AM Peak Hour Traffic Operations
Table 20: 2019 Alternative 2B PM Peak Hour Traffic Operations
The roadway redesign included as part of Alternative 2B provides for an improved offset of opposing
northbound and southbound left-turn lanes on Jackson Street. This will allow for the consideration of
removing the existing left-turn prohibition from Jackson Street to New York Avenue weekdays from 3pm
to 7pm.
2045: The study intersections are expected to operate in Alternative 2B under 2045 volumes with all
movements at LOS ‘C’ or better during both the morning and evening peak hours with the exception of
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C B A A A B
Delay (sec)29.0 29.9 13.9 9.8 0.0 7.7 12.3
Queue (ft)25'25'25'125'25'75'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C C C A A B
Delay (sec)33.1 30.8 32.1 28.1 5.5 4.3 10.9
Queue (ft)25'50'150'50'25'25'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C A B B
Delay (sec)30.7 31.3 7.1 13.3 14.0
Queue (ft)25'50'25'50'--
MOEControlIntersection OVERALL
OVERALL
OVERALL
75'125'
28.8
Movement
Irving
Avenue Signal
2019 Alternative 2B AM Peak Hour Traffic Operations - Jackson Street
Movement
Church
Avenue Signal
C C
125'100'
28.3 27.6
A
7.1
275'
C A
6.0
28.8 29.0
A
4.1
125'
Movement
New York
Avenue Signal
C C
150'175'
A
6.9
150'
B
10.6
150'
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS D C B B A B B
Delay (sec)37.2 28.5 10.2 13.0 0.0 12.4 16.1
Queue (ft)50'50'25'300'50'50'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C C C A A A
Delay (sec)31.4 29.0 29.3 28.2 4.0 7.5 9.3
Queue (ft)50'50'100'75'25'25'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C B B B
Delay (sec)30.8 28.5 6.5 19.0 14.1
Queue (ft)75'50'25'25'--
OVERALL
OVERALL
OVERALLMOEControlIntersection
11.1
B
225'
4.4
100'
26.7
2019 Alternative 2B PM Peak Hour Traffic Operations - Jackson Street
28.0Irving
Avenue Signal
C
75'
AA
5.8
275'
B
10.2New York
Avenue Signal
C C
26.9 27.4
Movement
125'125'
Movement
100'225'
Church
Avenue Signal
C C
Movement
34.1
A
5.3
200'
150'
32
the eastbound left turn movement on Church Avenue in the evening peak hour and the eastbound and
westbound approaches of New York Avenue during the morning and evening peak hours, which are
expected to operate at LOS ‘D’. Queue lengths along Jackson Street are expected to be similar to
Alternative 2A with an improvement for southbound traffic at New York Avenue and reach a maximum of
325 feet northbound at New York Avenue during the evening peak hour and 275 feet southbound at
Church Avenue during the morning peak hour. Overall, the movements at the three study intersections
are expected to continue to operate at an acceptable LOS ‘D’ or better during both the peak hour periods,
which can be seen in Table 21 and Table 22.
Table 21: 2045 Alternative 2B AM Peak Hour Traffic Operations
Table 22: 2045 Alternative 2B PM Peak Hour Traffic Operations
If the current left-turn prohibition at New York Avenue is removed under Alternative 2B, the evening peak
hour volumes can be expected to change as some through vehicles will return to making left turns in the
northbound and southbound directions. For the purpose of analyzing the potential shift in traffic volumes,
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C B B A A B
Delay (sec)29.3 30.1 15.8 10.1 0.0 8.4 12.6
Queue (ft)25'25'25'150'25'75'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C C C A A B
Delay (sec)33.4 31.4 32.4 28.3 6.6 4.6 11.3
Queue (ft)25'50'150'50'25'25'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS D D A A B
Delay (sec)37.8 39.3 4.1 8.9 13.7
Queue (ft)50'50'25'25'--
OVERALL
OVERALL
OVERALL
75'
C
29.0
Movement
7.8
275'
MOEControlIntersection
Signal
2045 Alternative 2B AM Peak Hour Traffic Operations - Jackson Street
Movement
125'100'
28.5 27.9Church
Avenue Signal
C C A
Irving
Avenue
A
7.0
150'
38.2 37.7New York
Avenue Signal
D D
A
4.3
125'
Movement
200'175'
A A
7.9
150'
4.0
125'
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS D C B B A B B
Delay (sec)38.5 28.5 10.7 13.5 0.0 13.7 16.5
Queue (ft)50'50'25'300'50'75'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS C C C C A A A
Delay (sec)31.6 29.1 29.5 28.3 4.4 8.8 9.6
Queue (ft)50'50'100'75'25'50'--
EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR
LOS D D A B B
Delay (sec)38.5 35.0 3.6 12.3 12.6
Queue (ft)75'50'25'25'--
OVERALL
OVERALL
OVERALL
Movement
225'
Signal
C
2045 Alternative 2B PM Peak Hour Traffic Operations - Jackson Street
MOEControlIntersection
33.7
28.1Irving
Avenue
C C
Movement
A
4.7
175'
A
6.4
75'
Movement
100'225'
Church
Avenue Signal
C C
26.7 34.9
A
5.5
250'
34.3
A
7.0
325'
A
7.5
125'150'150'
New York
Avenue Signal
33
it is assumed that the northbound and southbound left-turning vehicles would be similar in volume to the
left-turn volumes at the Jackson Street intersection with Irving Avenue. The analysis of these adjusted
volumes with permissive left-turn phasing indicates a very small increase in the overall delay of the
intersection, with minor increases in the left-turn delay and queuing and decreased delay and queueing
for the through movements. The design of the intersection under Alternative 2B also provides the
opportunity to consider protected phasing if desired, recognizing that this would result in increased delay
for other movements.
Travel Speeds
Travel speeds along Jackson Street under Alternative 2B are expected to be reduced as a result of
several corridor improvements. South of New York Avenue, where the roadway redesign will be
incorporated, the speed reduction is expected to be greater and comparable to Alternative 2A. North of
New York Avenue, the speed reduction will be limited to the impact of the speed feedback sign for
southbound traffic. The following summarizes the potential speed reduction of each isolated
improvement. As previously mentioned, these reductions in speed are not additive but the benefit of
applying more than one traffic taming technique is that one will reinforce another and add incremental
benefits in an effort to create a street with reduced travel speeds. The following Alternative 2B
improvements are expected to reduce travel speeds along Jackson Street south of New York Avenue:
• Roadway Redesign: According to FHWA, several urban roadway redesign projects have
resulted in a reduction of average vehicular travel speeds of 2mph to 4mph.
• Speed Feedback Signs: As identified for Alternative 1, FHWA research shows that speed
feedback signs have been effective at reducing speeds by 5mph. This conclusion is based on
several before and after studies that found average and 85th percentile travel speeds were
reduced between 1mph and 7mph depending on the roadway location and characteristics.
• Bump-Outs: According to FHWA, bump-outs have been shown to reduced average vehicle
speeds and 85th percentile speed by up to 4mph.
North of New York Avenue, speed reductions will be limited to the impact of speed feedback signs on
southbound traffic.
Safety
FHWA’s Crash Modification Factor Clearinghouse provides data related to the expected reduction in
crashes based on a wide variety of roadway treatments. As more than one safety improvement is made
along a given corridor, the potential overall impact is not additive for each isolated treatment, similar to
the previous discussion of impacts to travel speeds. But the combination of multiple safety improvements
does have incremental safety benefits, especially for multiple roadway users, and helps to create a safer
and more walkable urban street. The following Alternative 2B improvements are expected to reduce the
likelihood of crashes along Jackson Street:
• Roadway Redesign: FHWA provides crash reduction data based on multiple roadway redesign
studies that indicate the overall number of crashes along the corridor can be reduced between
19% and 25%. This safety improvement would be limited to the Jackson Street segment south of
New York Avenue.
• Improved Left-Turn Offset: The roadway redesign included in Alternative 2B allows for an
improved left-turn offset at intersections, converting the existing negative offset to a neutral offset
and allowing left-turning vehicles to have a better sight line for judging gaps in oncoming traffic.
Studies based on Wisconsin data have shown that improvements that create a positive left-turn
offset can reduce injury-related crashes by 35%. The improvement from a negative to a neutral
34
offset may be less than the 35% identified in this research but still provide improvement over the
existing condition. This safety improvement would be limited to the Jackson Street segment
south of and including New York Avenue.
• Continental-Style Crosswalk Markings: According to FHWA, continental-style crosswalk
pavement markings have been shown to reduce the likelihood of pedestrian-related crashes by
40%.
• Bump-Outs: Bump-outs located at unsignalized crossings in Alternative 2A have the benefit of
reducing the crossing distance for pedestrians and making the corridor more pedestrian friendly.
• Speed Feedback Signs: Although the FHWA studies related to speed feedback signs were
based on rural study locations, the data indicates that these signs can be expected to reduce the
number of all crash types by 5%.
Alternative 2B, as compared to Alternative 2A, would not provide the additional pedestrian crosswalk and
RRFBs recommended at Congress Avenue.
Estimated Cost
The estimated cost of Alternative 2B was calculated for two conditions. The first assumes the curb bump-
outs are incorporated as a reconstructed curb and gutter and expanded sidewalk. The second assumes
the curb bump-outs are incorporated using colored pavement markings and bollards and that the existing
curb and gutter remains in its current location. The resulting estimated costs are expected to be in the
range of $160,000 to $180,000 for the curb and gutter reconstruction and in the range of $120,000 to
$140,000 for the pavement markings and bollards. The costs are shown in Appendix C of the technical
supplement.
Two-Way Left-Turn Lane (TWLTL) and Traffic Volume
Guidance
FHWA’s Road Diet Informational Guide discusses AADT thresholds at which roadway redesigns (road
diets) may be considered. The Guide states that various maximum AADT volumes are used across the
country to determine appropriate corridors. For example, a “2011 Kentucky study showed Road Diets
could work up to an ADT of 23,000 vehicles per day (vpd).” Figure 15 is taken from the Guide and
identifies the maximum AADT threshold used by three cities across the country to identify potential
roadway redesign candidates. Review of several roadway redesign projects in Iowa found that the
feasibility of implementing a roadway redesign became less likely when peak hour traffic volumes
exceeded 875 vehicles per hour per day. The Guide’s conclusion is that “FHWA advises that roadways
with ADT of 20,000 vpd or less may be good candidates for a Road Diet and should be evaluated for
feasibility.
The WisDOT Facilities Development Manual (FDM) provides guidance in Chapter 11-25 for the design
criteria of TWLTLs. Section 5.4.2 states that the acceptable design year AADT for a 3-lane TWLTL is up
to 17,500 vpd. The City of Oshkosh Bicycle and Pedestrian Master Plan 2019 states that streets with an
AADT count of less than 20,000 vehicles are ideal candidates for conversion from a four-lane roadway to
two travel lanes with a center turn lane. Streets with 20,000 – 30,000 AADT counts are potential
candidates that require further analysis.
The Jackson Street corridor south of Irving Avenue and south of New York Avenue, with forecasted
AADTs of 11,250 vpd and 13,400 vpd, respectively, sit comfortably within the recommended AADT range
identified in the FDM. North of New York Avenue, Jackson Street and its forecasted AADT of 18,650 is
expected to be above the upper threshold identified by WisDOT and under the 20,000 vpd threshold
identified by FHWA and the City of Oshkosh Bike and Pedestrian Master Plan.
35
Figure 15: FHWA Guidance on Maximum Volume for Roadway Redesign 1
Comparable TWLTL Corridors
The City of Oshkosh has implemented roadway redesigns along the Murdock Avenue corridor and the 9th
Avenue corridor in recent years. Table 23 compares the most recent AADT volumes along each of these
recent roadway redesign corridors and the study segment of Jackson Street.
Table 23: City of Oshkosh Roadway Redesign Corridors – AADT Comparison
1 Road Diet Informational Guide, FHWA Safety Program, U.S. Department of Transportation Federal
Highway Administration, November 2014,
https://safety.fhwa.dot.gov/road_diets/guidance/info_guide/rdig.pdf.
AADT
(Vehicles per Day)
9,800 to 10,400
12,400 to 12,500
17,100
12,300
10,300
From Sheridan Street to Wisconsin Street
From Reichow Street to Knapp Street
South of Irving Avenue
South of New York Avenue
South of Hobbs Avenue
9th Avenue
Jackson Street
Murdock Avenue
36
Public Engagement
The public engagement process included two public information and feedback meetings and a series of
corridor stakeholder meetings. The meetings were held in coordination with a long-range planning study
for the Jackson Street corridor immediately north of the Historic Neighborhood, from Murdock Avenue to
I-41.
Stakeholder Meetings
Stakeholder meetings were held throughout the day on December 11, 2019. These meetings were held
at City Hall with residents and business owners from the Jackson Street corridor and provided an
opportunity for attendees to express their thoughts and concerns on the existing corridor and offer
suggestions for potential improvements. The following summarizing the comments that were heard most
often for the Historic Jackson Street study corridor during the Stakeholder meetings:
• Primary concerns of high vehicular travel speeds and safety
• Character of roadway as a highway vs street
• Would prefer a more walkable street
• East/west bike and pedestrian connectivity
• Consider additional crosswalks, speed feedback signs, and roadway redesign
• Terrace width and limited snow storage in winter
• Crossing maneuver between Congress Avenue and Nevada Avenue can be challenging
• Challenges for the high number of driveways to enter/exit residences
• High number of rental properties near south end of the study area
• Suggestion to move the I-41 Alternate Route designation to a different corridor
The full summary of comments received during the stakeholder meetings are included in Appendix D of
the technical supplement.
Public Engagement & Listening Session
A Public Engagement and Listening Session was held later that evening on December 11, 2019 at
Oaklawn Elementary School from 6PM – 7:30PM. The purpose of the meeting was to summarize the
intent of the study, provide background on safety, vehicle speeds, and traffic volumes that had been
collected, and provide an opportunity in a public format for attendees to express their thoughts, concerns,
and suggestions for the corridor.
Following the public comment portion of the meeting, attendees gathered into small groups around aerial
maps of the corridor and provided written markups on the exhibits highlighting their concerns and
suggestions. The themes of the public comments and written notes, included in Appendix D of the
technical supplement, echoed the same messages heard earlier in the day during the stakeholder
meetings.
Comments:
• Pedestrians feel unsafe on sidewalks adjacent to high speed traffic
• High traffic speeds exceed posted speed limit
• Very difficult to exit driveways
• There are very few marked crosswalks making it difficult to cross the street (especially at bus
stops and near schools/parks)
• Lack of snow storage ability along Historic Jackson Street Corridor segment
• Roadway noise is very loud
37
• Street lighting needs improvement
• Pedestrian safety at Murdock roundabout crossings
Suggestions:
• Need sidewalks along entire corridor
• Apply traffic speed taming tools
• Consider ‘roadway redesign’ improvement
• Install crosswalk at bus stops and near school/park locations
• Consider flashing beacons
• Reduce sign clutter
• Consider rerouting I-41 Alternate Route
Public Engagement Meeting #2
A second public engagement meeting was held on March 4, 2020 at Oaklawn Elementary School from
6PM – 7:30PM. The purpose of the meeting was to review the intent of the study, provide a summary of
the comments heard during the first public engagement session, identify the evaluation criteria for the
corridor and summarize the improvement options being considered.
The alternatives presented at the second public engagement meeting included preliminary versions of the
three alternatives included in this report.
• Alternative 1: Maintain Existing Cross-Section
o This alternative included only the installation of four speed feedback signs, similar to the
current Alternative 1 concept.
• Alternative 2A: Full Roadway Redesign (Full TWLTL)
o Alternative 2A, as presented at the second public engagement meeting, included the
roadway redesign from a four-lane cross-section to one through lane in each direction, a
center two-way left-turn lane, and an outside buffer on each side of the roadway. The
roadway redesign extended from Church Avenue to the Nevada Avenue intersection and
returned to a four-lane cross-section north of Nevada Avenue to Murdock Avenue.
o Alternative 2A did not include the proposed crosswalk and RRFBs at Congress Avenue
but did include a crosswalk near Nevada Avenue.
• Alternative 2B: Partial Roadway Redesign (Partial TWLTL)
o This alternative included the reconfiguration of Jackson Street to a three-lane cross-
section south of New York Avenue and maintained the four-lane cross-section north of
New York Avenue, similar to the current Alternative 2B concept.
The most common comments received are summarized below and the full comment summary is included
in Appendix D of the technical supplement.
Comments:
• Snow removal concern at bump-outs
• Preference in Alternative 2A to extend the three-lane cross-section farther north to address traffic
speeds and safety
• Consider adding more crosswalks in the vicinity of Nevada Avenue
• Support expressed for Alternative 2A and the potential speed and safety improvements
• Vehicle and pedestrian safety concerns at the offset alignment of Nevada Avenue
38
• Suggestion to implement the three-lane cross-section immediately south of Murdock Avenue
• Consider relocating Jackson Street bus route to Wisconsin Street
• School board is considering options for the Merrill Elementary/Middle School site and Jackson
Athletic Field
• Consider adding left-turn arrows at Irving Avenue and New York Avenue
• Pedestrian crossing concerns at Murdock Avenue roundabout
Other Improvement Considerations
During the public engagement process, several comments were received concerning additional possible
improvements to areas of operational or safety concern. Although long-term improvements to address
these comments are not included in the scope of this study, information is provided below to document
the consideration given to these issues.
Congress Avenue & Nevada Avenue Intersections
The Jackson Street offset intersections at Congress Avenue and Nevada Street present operational
concerns as eastbound and westbound vehicles weave through this pair of intersections. In addition, the
presence of Merrill Elementary/Middle School and the Jackson Athletic Field results in the presence of
school-age pedestrians.
During the first public engagement meeting, comments were received that special consideration should
be given to the operations and safety in this area. Possible long-term improvements included
consideration of realigning the east leg of Nevada Street to create a more-typical four-legged intersection
and simplify the crossing maneuver for eastbound and westbound traffic. After discussions with the City,
it was determined that the option of realigning Nevada Street was outside of the scope of this study.
Additionally, the Oshkosh School District is evaluating potential future uses of the existing Merrill
Elementary/Middle School and Jackson Athletic Field sites that could potentially impact this area. For this
reason, long-term recommendations for the realigning of Nevada Street are not included in this study.
It should be noted that the speed feedback signs included in all alternatives should reduce travel speeds
along the corridor, which may help allow turning vehicles to find adequate gaps in Jackson Street traffic
and help reduce the likelihood of crashes. In addition, the roadway reconfiguration under Alternative 2A
should further reduce travel speeds and would simplify the crossing maneuver by reducing the number of
lanes on Jackson Street and allow for a two-stage left-turn movement.
Murdock Avenue Roundabout
During each of the two public engagement meetings, comments were received concerning the pedestrian
crossing accommodations at the Jackson Street roundabout with Murdock Avenue. The intersection was
reconstructed as a roundabout in 2010. The pedestrian crosswalks are located so that vehicles stopped
at the roundabout occupy the crosswalk space and obstruct the ability of pedestrians to safely cross.
Desirably, the crosswalk should be located far enough from the vehicular yield point that pedestrians are
able to cross behind the stopped vehicle.
The Oshkosh Bicycle and Pedestrian Advisory Committee conducted a meeting on March 17, 2016 that
featured a discussion of this issue. At that meeting, a representative from WisDOT explained that the
location of the crosswalks was selected to ensure that adequate width is provided for a pedestrian waiting
in the median island. The roundabout had been designed to minimize the taking of right-of-way and
adjacent parcels and shifting the crosswalks farther from the center of the roundabout would require
major reconstruction of the roundabout. In 2013, RRFBs were added to all four approaches of the
roundabout. No pedestrian-involved crashes were reported in the study period.
39
After discussion with City staff, it was determined that this study would not include a full reconstruct of the
roundabout approaches. Consideration was given to a number of possible improvements but were not
deemed appropriate.
• “Yield Here to Pedestrians” Sign: Consideration was given to adding the R1-5 sign at the
roundabout approaches at each crosswalk but the Manual on Uniform Traffic Control Devices
(MUTCD) states in Section 2B.11 “Yield (stop) lines and Yield Here to (Stop Here For)
Pedestrians signs should not be used in advance of crosswalks that cross an approach to or
departure from a roundabout.”
• Triangle Yield Line Pavement Markings: The MUTCD offers the option of including white triangle
pavement markings at the yield point for entering the roundabout. Consideration was given to
using these markings in advance of the crosswalk, but the concern was raised that this marking
would lead to motorist confusion as to the appropriate yield location for entering the circulating
roadway within the roundabout.
Providing crosswalks set sufficiently back from the circulating roadway to reduce the likelihood of vehicle
obstructions requires significant reconstruction of the roundabout. It was determined that no additional
signing or changes at the roundabout would be included as part of this study.
40
Comparison of Alternatives
The multimodal traffic safety and quality of life study evaluated the safety and operations of the existing
corridor geometrics and multiple potential corridor improvements to identify recommended treatments for
improving the quality of life along the corridor and identifying the impacts to safety, travel speeds, and
operation. Table 24 provides a qualitative summary of the expected impact that each Alternative will
have on the evaluation criteria.
Alternative 2A, the full roadway redesign for nearly the entire study corridor, is expected to have the
highest positive impact on all criteria with the exception of roadway reserve capacity for vehicular through
traffic. Alternative 1, which maintains the existing four-lane capacity and installs speed feedback signs, is
expected to have the least positive impact on criteria outside of the roadway reserve capacity. Alternative
2B, which combines components of the other two alternatives, is expected to provide moderate
improvements when compared to the other two alternatives.
Table 24: Comparison of Alternatives
Cross-Section Redesign with Two-
Way Left-Turn Lane
Redesign with Two-
Way Left-Turn Lane
Vehicular Reserve
Capacity
Safety
Vehicular Speeds
Pedestrian
Accommodations
Snow Storage
Driveway Access
Noise
Public Feedback
Cost* $70K - $80K $180K - $230K $130K - $180k
Qualitative Comparison Scale:
*Costs for Alternatives 2A and 2B include a range for the inclusion of either reconstructed or painted bump-outs.
41
Conclusions & Recommendations
The City of Oshkosh retained Ayres Associates to conduct a traffic safety and quality of life study along
the Jackson Street corridor from Church Avenue to Murdock Avenue. Existing traffic speed and safety
data indicate there is a need to tame traffic in this residential neighborhood that will enhance safety for all
users, and improve mobility for vehicles, pedestrians, and bicyclists. The study summarizes existing
travel speeds, safety, and operation of the corridor and identifies several roadway cross-section
improvement alternatives.
Jackson Street is a north/south, four-lane urban roadway, with a 30-mph posted speed limit. The street is
also identified as a “connecting highway” by the Wisconsin Department of Transportation (WisDOT) as
US 45 and STH 76. The corridor also serves as the signed alternate route for I-41 and experiences an
increase in traffic when closures occur on I-41, approximately four to five times per year. The corridor
includes 17 intersections, including Murdock Avenue and Church Avenue, as well as 148 private curb
openings serving 165 residential properties. The corridor travels through a predominantly residential
neighborhood. The presence of Merrill Elementary/Middle School to the east and the University of
Wisconsin-Oshkosh to the west creates pedestrian activity along the corridor, with a high number of
students of all ages. Traffic signal-controlled intersections are located at New York Avenue, Irving
Avenue, and Church Avenue.
The study segment of Jackson Street was reconstructed by WisDOT in 2001, expanding the street from
two lanes to four lanes with a greatly reduced terrace width. The width of the roadway is 45’, within a 60’
right-of-way from Church Avenue to New York Avenue and a 66’ right-of-way from New York Avenue to
Hobbs Avenue. The intent of this study is not a full roadway reconstruction as the existing roadway still
has useable life.
Intersection turning movement counts were gathered at the three study intersections of New York
Avenue, Irving Avenue, and Church Avenue from 3:00pm – 6:00pm on Monday, November 18, 2019;
6:00am – 9:00am on Tuesday, November 19, 2019; and 6:00am – 9:00am on Wednesday, November 20,
2019 when surrounding schools were in session.
WisDOT traffic counts gathered in 2019 resulted in the following daily traffic volumes:
• Murdock Avenue to New York Avenue: 17,100 vpd
• New York Avenue to Irving Avenue: 12,300 vpd
• Irving Avenue to Church Avenue: 10,300 vpd
Jackson Street historical daily traffic counts along the study corridor indicate that traffic volumes have
remained relatively constant over the last 20 years. Traffic forecasts from the ECWRPC indicate an
average annual growth rate of approximately 0.35% per year is expected on Jackson Street, with slightly
lower growth on the intersecting streets. This growth rate results in the following daily traffic volume
estimates for the design year of 2045
• Murdock Avenue to New York Avenue: 18,650 vpd
• New York Avenue to Irving Avenue: 13,400 vpd
• Irving Avenue to Church Avenue: 11,250 vpd
Vehicular speed data on Jackson Street, collected at two locations along the study corridor, indicate the
85th percentile speeds range between 35 mph and 40 mph and 68% to 92% of traffic exceeds the posted
30 mph speed limit, depending on the location and the direction of travel.
42
Street segment and intersection crash data provided by the UW TOPS Lab for the five-year period from
2014 through 2018 indicate an average of 63 crashes occur per year within the study corridor with a peak
of 75 total crashes in 2016.
The highest intersection crash locations were as follows:
• Murdock Avenue: Average 16 crashes per year
• New York Avenue: Average 13 crashes per year
• Irving Avenue: Average 6 crashes per year
The primary collision patterns involved left-turn, rear-end, and lane-changing/sideswipe crashes. The
three intersections identified above experience intersection crash rates above the most recent statewide
average crash rate for urban intersections. Four of the crashes during the study time period involved
pedestrians.
The three study intersections within the project corridor operate at LOS ‘D’ or better under the existing
conditions and are expected to continue to operate at LOS ‘D’ or better in the design year of 2045.
Sample communities across the country have identified a maximum upper limit of up to 25,000 vpd for
consideration of a roadway redesign from a four-lane to a three-lane cross-section. FHWA recommends
an upper limit of 20,000 vpd for consideration of a three-lane cross section and the WisDOT FDM
recommends an upper limit of 17,500 vpd.
The study identified three corridor improvement alternatives, all of which are expected to operate at an
acceptable LOS. Alternative 1, which maintains the existing four-lane cross-section and installs speed
feedback signs along the corridor, is expected to operate with a higher roadway reserve capacity for
through traffic than the other two alternatives, but provide less improvements to safety and the reduction
of travel speeds when compared to the other two alternatives.
Alternative 2A, which reconfigures the corridor from a four-lane to a three-lane cross-section with a center
two-way left-turn lane, is expected to operate with a lower reserve capacity for through traffic but still
maintain an acceptable LOS with higher intersection maximum queue lengths than Alternatives 1 and 2B.
Alternative 2A provides the highest potential safety improvement, greatest reduction in travel speeds,
much-needed space for snow storage, easier ingress/egress from corridor driveways, additional
pedestrian accommodations, and increased space between vehicles and pedestrians.
Alternative 2B, which reconfigures the corridor south of New York Avenue from a four-lane to a three-lane
cross-section with a center two-way left-turn lane, provides the same benefits for residents south of New
York Avenue as Alternative 2A, related to safety improvement, reduction in travel speeds, needed space
for snow storage, easier ingress/egress from corridor driveways, additional pedestrian accommodations,
and increased buffer space between vehicles and pedestrians. North of New York Avenue, Alternative
2B limits the potential for safety and speed improvements to that of Alternative 1 but provides additional
roadway through capacity in the segment where AADT levels are expected to exceed the WisDOT-
recommended upper thresholder for the consideration of three-lane cross-sections.
Recommendation: It is recommended that Alternative 2A be implemented along the Historic Jackson
Street study corridor. The redesigned cross-section is a better solution for the City compared to the
existing four-lane highway design in a built-up urban area with pedestrian and numerous driveway traffic
conflicts. Alternative 2A is expected to provide the greatest safety improvement along the corridor by
improving left-turn offsets, reducing travel speeds and the severity of injury-related crashes, and reducing
the potential for pedestrian-related crashes. It simplifies ingress/egress at the 148 private curb openings
along the corridor. The buffer space between the travel lane and the curb increases the available snow
storage space in winter and provides greater separation between the travel way and sidewalk, creating a
more inviting sidewalk space for pedestrians. All primary intersection traffic movements are expected to
continue to operate at an acceptable LOS ‘D’ or better and the recommendation is consistent with
43
information provided in the City’s Bicycle and Pedestrian Master Plan. In addition, Alternative 2A does a
better job of addressing the comments and concerns expressed by the public at the public engagement
sessions and stakeholder meetings. The Jackson Street redesign provides a proven opportunity to
enhance safety for vehicular traffic, as well as pedestrians and bicyclists, while also enhancing the quality
of life in the adjacent residential neighborhood.
At the request of the City, consideration was given to a phased approach for implementing improvements
along Jackson Street. A potential phased improvement moving from Alternative 1 to Alternative 2B to
Alternative 2A could include the following steps.
1. Installation of speed feedback signs (similar to Alternative 1).
2. Conversion of the existing roadway to a three-lane cross section with center left-turn lane from
Church Avenue to New York Avenue (similar to Alternative 2B).
3. Conversion of the existing roadway to a three-lane cross section with center left-turn lane from
New York Avenue to Murdock Avenue (similar to Alternative 2A).
Additionally, the curb bump-outs included in Alternatives 2A and 2B could be constructed at a later date
as part of a phased approach. The phased implementation plan is feasible and would allow for an
opportunity to measure the performance of the improvements prior to implementing the next roadway
improvement. On the other hand, implementing improvements in this manner would have the following
drawbacks.
First, the speed feedback signs under Alternative 1 are recommended as overhead signs, making them
more visible to drivers within a four-lane cross section. Under the three-lane cross section of Alternative
2A, the speed feedback signs could be post-mounted on the side of the roadway. Using the phased
implementation would result in either post-mounted signs that are less effective as an initial improvement
in the four-lane cross section, or an increase in the cost of an ultimate three-lane design under Alternative
2A to include overhead signing. It is recommended that if a phased approach is used, overhead signing
be installed for improved sign visibility.
The second drawback is the cumulative impact of the improvements would not be fully realized until the
final improvement is made. Each of the improvements suggested with Alternative 2A has its individual
impact on speeds and safety, but the cumulative effect when combined together and implemented along
the entire length of the corridor can be more powerful in redefining the roadway as an urban street as
opposed to a higher-speed highway.
A third drawback is the need to restripe the area surrounding the New York Avenue intersection multiple
times. The pavement markings applied under the second step, reflecting the design shown in Alternative
2B, would need to be removed for the third step, continuing the three-lane cross section north to Murdock
Avenue.
Exhibits
Exhibit 1: Alternative 1 Conceptual Plan
Exhibit 2: Alternative 2A Conceptual Plan
Exhibit 3: Alternative 2B Conceptual Plan
Exhibits
Exhibit 1: Alternative 1 Conceptual Plan
Exhibit 2: Alternative 2A Conceptual Plan
Exhibit 3: Alternative 2B Conceptual Plan
h^^dKW
h^^dKW h^^dKW
h^^dKW
h^^dKW h^^dKW
1
1
1
> ' E
y/^d/E'KEZ d Ws D Ed
y/^d/E'KEZ d hZ
Ed Z>/E Ws D EdDZ</E'
>E >/E Ws D EdDZ</E'
^/'EKEW ZDE Ed^hWWKZd
MA
T
C
H
L
I
N
E
#
1
MA
T
C
H
L
I
N
E
#
1
MA
T
C
H
L
I
N
E
#
2
MA
T
C
H
L
I
N
E
#
2
JACKSON ST.
CHU
R
C
H
A
V
E
.
IR
V
I
N
G
A
V
E
.
JACKSON ST.
JACKSON ST.
NE
W
Y
O
R
K
A
V
E
.
EAST HALL PARK
UN
I
O
N
A
V
E
.
AM
H
E
R
S
T
A
V
E
.
W.
L
I
N
C
O
L
N
A
V
E
.
SC
O
T
T
A
V
E
.
ME
L
V
I
N
A
V
E
.
PR
O
S
P
E
C
T
A
V
E
.
SA
R
A
T
O
G
A
A
V
E
.
AN
N
E
X
A
V
E
.
CO
N
G
R
E
S
S
A
V
E
.
W.
N
E
V
A
D
A
A
V
E
.
W.
N
E
V
A
D
A
A
V
E
.
W.
B
E
N
T
A
V
E
.
W.
B
E
N
T
A
V
E
.
ST
A
N
L
E
Y
A
V
E
.
HO
B
B
S
A
V
E
.
(;+,%,7
ALTERNATIVE 1: MAINTAIN EXISTING CROSS SECTION
JACKSON STREET CORRIDOR PLAN AND SAFETY STUDY
OSHKOSH, WI
MU
R
D
O
C
K
A
V
E
.
h^^dKW
ϱϰΗyϯϬΗ
ϯϬΗyϯϬΗ
ϯϬΗyϯϬΗ
ϮϰΗyϭϮΗ
ϮϰΗyϭϮΗ
h^^dKW
h^^dKW
h^^dKW
ϯϬΗyϯϬΗ
ϯϬΗyϯϬΗ
ϯϬΗyϯϬΗ
ϯϬΗyϯϬΗ
ϮϰΗyϭϮΗ
ϮϰΗyϭϮΗ
ϮϰΗyϭϮΗ
ϮϰΗyϭϮΗ
ϯϬΗyϯϬΗ
ϮϰΗyϭϮΗ
h^^dKW h^^dKW ϯϲΗyϯϲΗ
ϮϰΗyϮϰΗ
ϮϰΗyϭϮΗ
Z dE'h>ZZW/
&>^,/E' KE
ϯϬΗyϯϬΗ
ϮϰΗyϭϮΗ
Z dE'h>ZZW/
&>^,/E' KE
ϯϬΗyϯϬΗ
W ^dZ/EZ &h' Z
Z dE'h>ZZW/
&>^,/E' KE
ϯϬΗyϯϬΗ
ϮϰΗyϭϮΗ
Z dE'h>ZZW/
&>^,/E' KE
ϯϬΗyϯϬΗ
ϮϰΗyϭϮΗ
1
> ' E
y/^d/E'KEZ d Ws D Ed
y/^d/E'KEZ d hZ
Ed Z>/E Ws D EdDZ</E'
>E >/E Ws D EdDZ</E'
dtKͲtz> &ddhZE>E
1
1
MA
T
C
H
L
I
N
E
#
1
MA
T
C
H
L
I
N
E
#
1
MA
T
C
H
L
I
N
E
#
2
MA
T
C
H
L
I
N
E
#
2
^/'EKEW ZDE Ed^hWWKZd
JACKSON ST.
CHU
R
C
H
A
V
E
.
IR
V
I
N
G
A
V
E
.
JACKSON ST.
JACKSON ST.
NE
W
Y
O
R
K
A
V
E
.
EAST HALL PARK
UN
I
O
N
A
V
E
.
AM
H
E
R
S
T
A
V
E
.
W.
L
I
N
C
O
L
N
A
V
E
.
SC
O
T
T
A
V
E
.
ME
L
V
I
N
A
V
E
.
PR
O
S
P
E
C
T
A
V
E
.
SA
R
A
T
O
G
A
A
V
E
.
AN
N
E
X
A
V
E
.
CO
N
G
R
E
S
S
A
V
E
.
W.
N
E
V
A
D
A
A
V
E
.
W.
N
E
V
A
D
A
A
V
E
.
W.
B
E
N
T
A
V
E
.
W.
B
E
N
T
A
V
E
.
ST
A
N
L
E
Y
A
V
E
.
HO
B
B
S
A
V
E
.
JACKSON STREET CORRIDOR PLAN AND SAFETY STUDY
OSHKOSH, WI
EXHIBIT 2
ALTERNATIVE 2A: FULL ROADWAY REDESIGN WITH TWLTL
MU
R
D
O
C
K
A
V
E
.
h^^dKW
ϱϰΗyϯϬΗ
ϯϬΗyϯϬΗ
ϯϬΗyϯϬΗ
ϮϰΗyϭϮΗ
ϮϰΗyϭϮΗ
h^^dKW
h^^dKW
h^^dKW
ϯϬΗyϯϬΗ
ϯϬΗyϯϬΗ
ϯϬΗyϯϬΗ
ϯϬΗyϯϬΗ
ϮϰΗyϭϮΗ
ϮϰΗyϭϮΗ
ϮϰΗyϭϮΗ
ϮϰΗyϭϮΗ
ϯϬΗyϯϬΗ
ϮϰΗyϭϮΗ
h^^dKW h^^dKW
1
> ' E
y/^d/E'KEZ d Ws D Ed
y/^d/E'KEZ d hZ
Ed Z>/E Ws D EdDZ</E'
>E >/E Ws D EdDZ</E'
dtKͲtz> &dͲdhZE>E
1
1
MA
T
C
H
L
I
N
E
#
1
MA
T
C
H
L
I
N
E
#
1
MA
T
C
H
L
I
N
E
#
2
MA
T
C
H
L
I
N
E
#
2
^/'EKEW ZDE Ed^hWWKZd
JACKSON ST.
CHU
R
C
H
A
V
E
.
IR
V
I
N
G
A
V
E
.
JACKSON ST.
JACKSON ST.
NE
W
Y
O
R
K
A
V
E
.
EAST HALL PARK
UN
I
O
N
A
V
E
.
AM
H
E
R
S
T
A
V
E
.
W.
L
I
N
C
O
L
N
A
V
E
.
SC
O
T
T
A
V
E
.
ME
L
V
I
N
A
V
E
.
PR
O
S
P
E
C
T
A
V
E
.
SA
R
A
T
O
G
A
A
V
E
.
AN
N
E
X
A
V
E
.
CO
N
G
R
E
S
S
A
V
E
.
W.
N
E
V
A
D
A
A
V
E
.
W.
N
E
V
A
D
A
A
V
E
.
W.
B
E
N
T
A
V
E
.
W.
B
E
N
T
A
V
E
.
ST
A
N
L
E
Y
A
V
E
.
HO
B
B
S
A
V
E
.
JACKSON STREET CORRIDOR PLAN AND SAFETY STUDY
OSHKOSH, WI
(;+,%,7
ALTERNATIVE 2B: PARTIAL ROADWAY REDESIGN WITH7:/7/
MU
R
D
O
C
K
A
V
E
.