HomeMy WebLinkAboutIntersec Altern Rt. 29 INTERSECTION ALTERNATIVES
AND COMPLEMENTARY IMPROVEMENTS:
ROUTE 29 AND HYDRAULIC ROAD
Prepared for
Southern Environmental Law Center
Prepared by
Glatting Jackson Kercher Anglin Lopez Rinehart, Inc.
March 2001
Intersection Alternatives and Complementary Improvements:
Route 29 and Hydraulic Road
The intersection of Hydraulic Road and US Route 29/Emmet Street significantly influences
traffic patterns and congestion levels for both the City of Charlottesville and Albemarle County.
Traffic conditions at this intersection also impact "through" trips on Route 29 with neither origin
nor destination in Charlottesville or Albemarle. It has long been recognized that this intersection
has serious traffic congestion and presents safety problems for pedestrians, bicyclists and
motorists alike. In addition, access to businesses in the vicinity of the intersection has been, and
will continue to be, diminished by traffic and by congestion mitigation measures such as shorter
traffic signal phases and closing access through medians.
Glatting Jackson has evaluated traffic projections for this intersection and the Route 29 corridor,
the grade-separated interchange that the Virginia Department of Transportation proposed for this
intersection in 1994, as well as a range of alternatives to improve this intersection and the
surrounding area.
Summary of Recommendations:
We recommend construction of a grade-separated intersection at Route 29 and Hydraulic Road.
As outlined in this report, creating such an intersection would offer tremendous benefits for
relieving congestion at Route 29 and Hydraulic Road, improving traffic flow on local streets, and
enhancing overall access to commercial sites in the area. If designed correctly, a grade-
separated intersection could effectively facilitate all modes of travel while still satisfying the
needs of commercial interests. Coupled with complementary measures to improve the local
network, this area of the City and County could become more accessible, thereby leading to its
enhancement as a commercial and community center.
1. Construct a Grade-Separated Intersection
There are various types of improvements that could be made to this intersection, and a range of
design options. We believe that the best design is a "Modified Tight Urban Diamond"
intersection, or "Modified TUDI." This type of design would minimize the amount of land
needed to create a grade-separated intersection and the impact of the project on existing
businesses. Moreover, by providing a more attractive and conventional walking route between
both sides of the intersection, this type of design would be "friendly" to bicycle and pedestrian
travel and adjacent development.
Further, we strongly recommend an alignment that would keep Hydraulic Road at its current
elevation, and depress the through lanes on Route 29 beneath Hydraulic Road. This vertical
alignment of the intersection would yield four design advantages of great importance to the
development of the intersection area: (1) normal commercial frontage would be accommodated
along Hydraulic Road, for almost the entire distance now having access to Hydraulic Road; (2)
access to all of the properties along Route 29 would be continued from the at-grade
ramp/frontage road combinations; (3) the ramp/frontage roads would provide an improved
frontage for redeveloping properties, compared to the existing frontage on Route 29; and (4) no
elevated features (embankments, ramps, bridge structure, etc.) would be present. Thus,
commercial visibility from the road approaching the intersection would be comparable to the
current situation. Any structure, sign, or other business feature currently visible from either
Route 29 or Hydraulic Road would continue to be visible to exactly the same degree from
passing traffic.
Creating a grade-separated intersection, particularly if coupled with our other recommendations,
in fact could improve access for most properties in the area. The adverse impacts that suCh a
project would have on access to other existing properties could be significantly reduced by
measures such as obtaining access easements across neighboring properties.
Construction of the project that we recommend - and, possibly, a grade-separated intersection at
the Rio Road/Route 29 intersection as well - would do more than any other transportation
improvement to improve the level of service along the Route 29 corridor.
As shown in the 1993 Route 29 Corridor Study, Final Environmental Impact Statement (" 1993
Final EIS"), the level of traffic service ("LOS") on Route 29 will sink to "F" (i.e., failed) by
2010 if grade-separated intersections along Route 29 are not undertaken. The 1993 Final EIS
shows that this would be the case regardless of any other major investments. Specifically, the
alternatives for a western bypass (10, 11 and 12) in the 1993 Final EIS, and for the Meadowcreek
Parkway, still would leave Route 29 with Level of Service "F" (failed) if all of the intersections
on Route 29 were to remain at grade. In addition, four alternatives in the 1993 Final EIS for
major parallel improvement (Alternative 6, 6b, 7 and 7a) called for an eastern bypass, to supplant
the Meadowcreek Parkway. In all four of these cases, the resulting level of service on Route 29
would also be LOS "F" by the year 2010 in the absence of grade-separated intersections.
2. Make Complementary Improvements to the Local Road Network
In addition to creating a grade-separated intersection, a complementary strategy of improving the
local road network in the surrounding community to create a more efficient urban grid pattern
should be pursued. Of particular importance, Hillsdale Drive should be extended to connect to
Hydraulic Road, which would reduce the amount of traffic that must go through the Route 29
and Hydraulic Road intersection by offering alternative routes to many destinations and by
providing additional bicycle and pedestrian access.
3. Foster "Smart Growth" Development in the Area
The redevelopment of commercial land along Route 29 and the development of the Sperry site
and land along the extension of Hillsdale Drive should be channeled into "smart growth"
patterns, rather than continue the existing auto-oriented sprawl patterns in the area. These
patterns would reduce the number of vehicle trips required by residents of the area and by
individuals trying to reach commercial destinations in this area, and they are a more valuable use
of these lands than the original highway-oriented sprawl.
I. Background
A. Transportation
The problems caused by traffic congestion at the intersection of Route 29 and Hydraulic Road
have long been recognized. The intersection was rated in 1998 as having a level of service
(LOS) of E, and VDOT projects in the 1993 Final EIS that the LOS will be "F" by 2010.
This congestion affects both "through" trips, with neither origin nor destination in the
Charlottesville area, and "local" trips using Route 29 and Hydraulic Road to commute to work
and to obtain daily goods and services. It also adversely affects local streets and businesses. For
example, one indication of the problems with this intersection is that travelers in the area
frequently avoid it by means such as cutting through the K-Mart parking lot. Moreover,
properties in the area around the intersection have suffered diminished access because, for
example, traffic volumes on both Route 29 and Hydraulic Road discourage would-be customers
from entering these properties. Finally, the design and traffic congestion at Route 29 and
Hydraulic Road present safety problems for pedestrians, bicyclists and motorists.
Most of the attention given to the Route 29 and Hydraulic Road intersection has been part of the
larger focus on the Route 29 corridor. In 1990, based on a consultant study and VDOT's
recommendations, the Commonwealth Transportation Board adopted a resolution calling for a
three-phase sequence of improvements to this corridor. Following the construction of short-term
improvements including the widening of Route 29 from Hydraulic Road to the South Fork of the
Rivanna River, the second phase of improvements was to be the construction of grade-separated
intersections along Route 29 at Hydraulic Road, Greenbrier Drive, and Rio Road. The third
phase was to be the Western Bypass if traffic and economic conditions so warranted. The
County, the City, and UVA agreed to this sequence of improvements.
Traffic analyses on alternative improvements for this corridor have consistently shown the
benefit of grade-separated intersections. The traffic analysis contained in the 1993 Final EIS, for
example, found that building the three grade-separated intersections would provide for a traffic
Level of Service of "B" (i.e. free-flowing) for the (then) design year of 2010 even if no major
alternate capacity (western or eastern bypass) were provided. This level of service is in sharp
contrast to the LOS "F" that was projected to exist if no improvements were made to Route 29.
In fact, the Hydraulic Road intersection was projected to be at LOS "F" even if major
improvements such as the proposed Route 29 Bypass, the Meadowcreek Parkway, or a
combination of both were built, but unaccompanied by grade-separated intersections.
The analysis done by VDOT in 1994-95, updating the design year to 2015, again examined the
ability of grade-separated intersections along the Route 29 corridor to accommodate future
traffic. This analysis, using the most detailed procedures available (the Highway Capaci(y
Manual Intersection Aaalysis), found that for the Year 2015 with a grade-separated interchange
in place Hydraulic Road would be at LOS "B." Without a grade-separated intersection, on the
other hand, the Hydraulic Road/Route 29 intersection would operate at LOS "F."
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I ~
IU.~. 29 INTEROHANGE~
B. The VDOT Proposal for a Grade-Separated Interchange
In 1994, VDOT proposed a modified tight urban diamond interchange for the Hydraulic
Road/Route 29 location, with Route 29 depressed under Hydraulic Road, and with Hydraulic
Road at its current grade, or very slightly elevated at some points. VDOT's design was a hybrid
of the normal tight urban diamond interchange and the single point urban interchange. Please
see Figure I (VDOT plan-view image dated September 1994).
Although the City and the County had agreed that a grade-separated intersection should be
constructed at the intersection of Hydraulic Road and Route 29, in January 1995, the
Charlottesville City Council rejected the VDOT design, citing, among other reasons, the
perceived impact on city businesses, the cost, and the aesthetics and environmental impacts.
Some of the problems with VDOT's design and their presentation of the design include:
Over Engineering -- In its designs, VDOT typically strives for the highest possible level of
traffic service, the highest capacity and the highest design speeds reasonable. Obtaining high
performance in these areas generally has a cost in terms of livability, aesthetics, business
environment and sO forth. The VDOT design could have been refined by reaching a different
balance (and one more acceptable to the community) between traffic performance and other,
locally important features.
Highway Engineering Focus -- VDOT plans necessarily are concerned with the details of
highway engineering. Thus, the focus of their plans is on the additional right-of-way needed,
loss of property access, rerouting, and changes in profile. The urban design of the
surrounding area is not part of the VDOT design process.
Limited Mitigation Measures -- VDOT is confined to mitigation measures (for example,
restoration of access, replacement parking, etc.) that can be located within its own right-of-
way, or within newly purchased right-of-way. Thus, many innovative solutions, which
would lessen considerably the impacts of the grade-separated intersection, were not part of
the VDOT design.
Condemnation of Property -- Because VDOT did not consider any additional access or
parking improvement measures, their design proposal unnecessarily and excessively would
have required the condemnation of five surrounding properties. Our design proposal,
coupled with suggested measures for how businesses can improve their access and parking,
in contrast will not require the removal of anv businesses.
Lack of Context-Sensitive Elements -- The intersection is located in the heart of a strip
commercial strip corridor that is likely to transition into more compact commercial uses in
the near future. Although the VDOT design contained features that would have supported
these developments in the surrounding area, these impacts were not articulated to the public.
Consequently, the overriding impression was that the interchange would have a negative
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impact on existing development, rather than stabilize access and support more valuable types
of use in the future.
Urban Design Context -- Other design modifications, as described below, are incorporated
in our proposal and would have a noticeable lessening of the impact on adjacent properties.
In addition, the road design should be part of a complementary effort within the urban design
context to considerand highlight other related issues such as the potential for redevelopment,
easier access due to reduced congestion, bicycle and pedestrian safety, and so forth. These
issues were not part of VDOT's focus.
C. Other Studies
Community interest in addressing the transportation problems in this area and revisiting the
concept of grade-separated intersections at Hydraulic Road, Greenbrier Drive, and Rio Road
continues. For example, at the July 25, 2000 VDOT Six Year Program pre-allocation hearing,
the MPO requested funding for a new study of the intersections along Route 29 between
Barracks Road in the City of Charlottesville and AirportJProffit Road in Albemarle County.
Neither VDOT nor the Commonwealth Transportation Board has allocated any funds for such a
study, however.
In addition, Charlottesville has retained consultants (Torti Gallas and Partners/CHK) to study
the City's commercial corridors as part of the most recent comprehensive planning process. The
Charlottesville Commercial Corridor Study report released December 2000 proposes that a
grade-separated interchange be built at Hydraulic Road and Route 29 with all of the turning
movements between roads negotiating around a traffic circle, similar to the design of Dupont
Circle in Washington D.C., with access and off-ramps adjacent to the through lanes (Report, p.
146).
Although the illustration of their proposal contained in the draft report (p. 147) shows Hydraulic
Road travelling below Route ?.9, the report states that "charrettte feedback was clearly in favor of
reversing this condition by allowing Emmet Street through passage" (p. 147). The consultant
stated during the presentation of this design concept that both are equally acceptable alternatives.
Further, a recent VDOT study entitled, US Route 29 Pedestrian Study (not officially dated),
looked at pedestrian access along the Route 29 corridor from Barracks Road to Airport/Proffit
Road, and recommended numerous improvements for this corridor. For the immediate vicinity
of the Hydraulic/Route 29 intersection, the report suggests that two grade-separated pedestrian
overpasses be built across Route 29 at a cost of $1.5 million apiece. Based on our evaluation,
we believe that, instead, a grade-separated intersection at Hydraulic Road and Route 7.9 could
supplant the need for these two overpasses by safely and more effectively getting pedestrians and
bicyclists across Route 29, as discussed in more detail below.
D. Land Use
Three corners of the intersection of Route 29 and Hydraulic Road lie within the City of
Charlottesville; the northwestern comer of this intersection is located in Albemarle County.
Properties in the area of this intersection contain predominantly suburban, commercial
development.
Recent studies and discussions have also explored the extensive potential to develop and
redevelop areas of the City and the County, in general, and this area in particular. For example,
the Charlottesville Corridor Study draft report examines the potential to redevelop 13 areas in the
City and includes urban design guidelines. This report observes that "the K-Mart shopping
center has a vacant movie theater, and the future of Kroger's on Hydraulic Road is uncertain,
given its proximity to a newer Kroger's at Barracks Road." (138).
The County has designated eleven Development Areas to accommodate future growth. The
northwest quadrant of the Route 29 and Hydraulic Road intersection is in one of these designated
areas, referred to as "Neighborhood Two" in the comprehensive plan. The Development Areas
Initiative Steering Committee (DISC) has recommended design principles for development in
designated development areas that include encouraging such development to be more compact
and more pedestrian-oriented. Proposals have begun to surface regarding significant new
development at the Sperry Site in the northwestern quadrant of the intersection.
A grade-separated intersection at the Hydraulic Road/Route 29 intersection would strongly
support the urban design elements of both the Charlottesville Corridor Study and the
recommended design principles of the DISC) Most importantly, the grade-separated
intersection supports these design principles by making a major improvement for pedestrian and
bicycle travel. Even if no other urban design objectives were accomplished, the removal of the
current pedestrian and bicycle conflicts with all through traffic alone would be an enormous
improvement for such travel. Further improvements in bicycle and pedestrian travel would
follow as a result of the urban design changes in the four intersection quadrants that would be
fostered by the intersection design itself.
The traffic design features of our proposal contain strong incentives to form the types of
development called for in the Charlottesville Corridor Study and the DISC recommendations, as
contrasted to a continuation of the existing auto-dominated sprawl. The grade-separated
intersection and its supporting street system would reinforce a commercial development pattern
that builds destinations, rather than continues to subsist on passing traffic from a major arterial
highway. Rather than depending on entry/exit from Route 29 (already a vanishing prospec0, our
design would foster the development of internal circulation through new local street systems,
connection of streets, extension of streets and cross-access easements between adjacent
properties within the quadrants. The depression of the through lanes of Route 29 beneath
Hydraulic Road, the design of the ramps as low-speed local streets and the continuation of
Hydraulic Road in its current vertiCal alignment are all factors that would permit the fronting of
streets by commercial buildings, as called for in both the Charlottesville Corridor Study and the
~ It is also important to note, however, that the effectiveness of the proposed improvements depends upon whether
the development patterns in this area follow "smart growth" principles. (See Section II. C, below).
DISC guidelines. This placement of commercial buildings is critical for the creation of
pedestrian-oriented town centers and for discouraging the continuation of strip development.
II. Recommendations for Grade-Separated Intersection and Other Improvements
A. Construction of a Grade-Separated Intersection
We recommend a modified tight urban diamond interchange ("Modified TUDI") for the grade
separation of Hydraulic Road and Route 29. The Modified TUDI is a hybrid of several different
design alternatives that include the conventional tight urban diamond interchange (TUDI) and
the single point urban interchange (SPUI).
1. Description of Interchange Types
a. Tight Urban Diamond Interchange (TUDI)
The tight urban diamond interchange (TUDI) (see Figure 2 a) is an urban, more compact
adaptation of the normal diamond interchange, which is perhaps the most frequently used design
along freeways. The TUDI design consists of four ramps that are placed as close as possible to
the freeway mainline (in this case, Route 29). The land requirement can be minimized by
placing the ramps immediately adjacent to the mainline lanes, and replacing the embankment
with retaining walls.
The TUDI has the advantages of being conventional in design and operation. Generally, it is the
most economical type of interchange to construct. However, this design becomes considerably
more expensive as the right-of-way becomes minimized by the use of retaining walls. The
drawbacks of the tight urban diamond design are primarily its difficulty in accommodating
turning movements, both from the ramps onto the cross street and, conversely, from the cross
street onto the ramps. The short spacing between the ramp terminals, a necessary feature of the
desire to minimize the space requirement of the intersection, present the possibility of a
"gridlock" (i.e., interference) between pairs of left tums. In the case of Route 29 this would be
either left turners from Hydraulic Road entering the ramps onto Route 29, or, conversely, left
tums from the off ramps exiting Route 29 and seeking to make a left turn onto Hydraulic Road.
Even at fairly low volumes of turning movements, the possibility of overlap (i.e., "gridlock") is
present. The simple remedy - providing separate signal phases -- would eliminate the gridlock
problem. The time required for these phases and their clearance, however, would rob the TUDI
of a significant amount of capacity, and invariably lead to lengthy signal cycles, frustrating
motorists and serving as a deterrent to pedestrians and bicyclists.
b. Single Point Urban Interchange (SPUI)
The single point urban interchange (SPUI) (see Figure 2 b) is an innovative recent design that is
now appearing throughout the US. This design minimizes the space required by bringing the
ramps immediately adjacent to the mainline, as is true with the tight urban diamond design
(above). However, rather than delivering all the exiting traffic and entering traffic to two closely
spaced intersections, as in the tight urban diamond, the SPUI delivers all turning movements to a
single intersection at the center of the interchange. This traffic operation greatly improves the
capacity of the intersection in two ways. First, this traffic operation reduces the signal cycle to a
simple three-phase operation: one for traffic exiting both of the ramps, another for traffic
making a left turn from Hydraulic Road onto either of the ramps onto Route 29, and a third for
the through traffic on Hydraulic Road. Second, it eliminates the possibility of "gridlock" when
pairs of left tums (for example, exiting Route 29 from both the north and the south) conflict with
each other, causing congestion or necessitating additional signal phases. The challenges of the
SPUI are a more intensive design effort, a somewhat unconventional configuration of the
intersection that requires some degree of learning on the part of the driving population, a larger
and more expensive structure and difficulty in accommodating intersections of non-
perpendicular roadways.
Our Proposal for a Modified Tight Urban Diamond Interchange
We recommend that a Modified TUDI (see Figure 2 c) be adopted as the design for the grade
separation of the Hydraulic Road/Route 7.9 intersection. The Modified TUDI combines
advantages of both the SPUI and the TUDI designs. First, by combining all of the left-turning
movements from Hydraulic Road onto Route 29 into a single signal phase, the Modified TUDI
can provide a high level of traffic service. The reduced number of signal phases, in addition to
being a benefit to vehicular capacity, are also a benefit to pedestrians and bicyclists traveling
along HydraUlic Road. Second, with some further refinements in ramp design, the Modified
TUDI can have the least impact on adjacent properties of all options studied.
We also strongly recommend a Modified TUDI alignment that would keep Hydraulic Road at its
current grade, and depress the through lanes on Route 29 beneath Hydraulic Road. This design
would allow the existing commercial frontage along Hydraulic Road to be accommodated, for
almost the entire distance now having access to Hydraulic Road. Access to all of the properties
along Route 29 would continue from the at-grade ramp/frontage road combinations. In addition,
using this alignment would mean that any structure, sign, or other-business currently visible from
either Route 29 or Hydraulic Road would continue to be visible to passing traffic to exactly the
same degree. Please see Figure 3 (plan view of our Modified TUDI proposal).
We also propose certain refinements in the Modified TUDI that would noticeably lessen the
impact on adjacent properties. First, eliminating the right-mm-only lane from the exiting
frontage road/ramp in both the northbound and southbound directions would make a large
difference in terms of the intrusion into the businesses on the northwest and southeast quadrants
of the intersection. The traffic service can easily afford the loss of these lanes. Specifically, for
the Year 7.015 traffic projections, the intersection would still function at a satisfactory level of
service with the right turn lanes removed.
Second, reduction of the turning radii of the right lanes at both the northwest and southeast
comers could reduce considerably the impacts on businesses there, while still accommodating
the design vehicle of the large tractor/trailer truck (i.e., the "WB-50" turning moving template).
Tightening the radii on these tums, and thereby moving them closer to the intersection, would
free up very important space for the businesses in each of these quadrants.
The length of the ramps between Hydraulic Road and Route 29, previously of concern in the
discussion of the proposed VDOT design, could also be mitigated. First, it should be clearly
understood that the ramps would not cut off access to adjacent properties (as is the case with
normal interchange ramps), but rather would maintain access to almost all of the properties
currently having access to Route 29. Moreover, a strong argument can be made that the access
from the ramp would prove to be a superior level of access to that now experienced from Route
29. The travel speeds and volumes on the ramp would be far more conducive to turning
movements to and from properties along the ramp than the outer lane of the existing Route 29.
In addition, the "U-turns" provided between the ramps on both the north and south side of
Hydraulic Road would provide a convenient, signal-free route for motorists proceeding in one
direction on Route 29 but Wanting to reach a destination on the other side. At present, this
movement is possible only by going through the lengthy signal phasing at the Route
29/Hydraulic Road intersection, then making a U-rum, then weaving across traffic to reach the
destination driveways. With the grade-separated intersection and the "U-turn" in place, this
travel pattern would be greatly improved.
As discussed more fully below, adverse impacts of our proposal on access to existing properties
could also be significantly reduced by measures such as obtaining access easements across
neighboring properties. Creating the grade-separated intersection, particularly if coupled with
our other recommendations, in fact could improve access for most businesses in the area.
3. Other Effects of Our Proposal for a Modified TUDI
a. Visual Attractiveness
By almost every measure, our proposal would improve the aesthetic appearance of the Hydraulic
Road/Route 29 intersection. The most dramatic impact would be a drastic reduction in the
amount of visible pavement that would be seen from any viewpoint within the intersection. At
present, the view of the intersection is dominated by an expanse of pavement that is eleven or
twelve lanes wide. With the design that we propose, the largest expanse of pavement would be a
six-lane divided segment on Route 29. Further, the visual impact of this segment would be
greatly reduced, compared to the same width on a surface street, because these six lanes would
be in the depressed section' of Route 29 under Hydraulic Road.
On the surface (i.e., at the Hydraulic Road level), the greatest expanse of pavement visible in the
east-west direction would be the two or three lanes on the frontage roads/ramps. The east/west
driver on HydraUlic Road would experience two small, low-volume intersections with a short
bridge between them. There would be little sensation of the large volume of through traffic on
Route 29, since this traffic would be on the depressed roadway beneath Hydraulic Road. This
experience for east/west through trips under the modified TUDI contrasts sharply with the
existing experience, which is dominated by the overpowering intersection, with its vast pavement
9
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Hillsdale Dr
300 North
Figure 3
Areawide Plan, Proposed G~de-Separated Intersectic
areas, large volumes of traffic, complicated signal displays, lengthy signal cycles and long
delays.
Likewise, the visibility of the properties on the frontage roads/ramps would be improved over the
existing situation. At present, properties fronting along Route 29 in the vicinity of the
intersection front directly onto a high-volume, high-speed street. Motorists are deterred from
turning into these properties, or even seeing them, because of the volume and speed of the traffic
flow. With our proposal, on the other hand, motorists along the frontage road/ramps would
regard the fronting properties from the viewpoint of traffic on a low-speed, low-volume street.
The signage and displays of the properties would be more visible and appealing to motorists, and
the convenience and perceived safety of entering/exiting the properties would be much
improved.
b. Noise Reduction Benefits
Our proposal would greatly reduce the vehicular noise at the Hydraulic Road/Route 29
intersection area. Most important, for almost 60% of all traffic entering the intersection (i.e.,
through traffic on Route 29) the noise associated with deceleration/acceleration at traffic signal
stops would be eliminated. Thus, the largest source of noise for a majority of all traffic would be
removed. Further, the reduced volume of noise from through traffic would be less noticeable to
the surrounding area, since this through traffic would be depressed throughout the entire
intersection area, with the noise therefore somewhat contained within the depressed section of
roadway. Finally, less noise would be generated by traffic on Hydraulic Road, due to the
reduced probability of being stopped at a traffic signal, which tr~lnslates to a reduced level of
noise from the related deceleration/acceleration maneuvers.
c. Pedestrian and Bicycle Circulation
Under our proposal, pedestrians and bicyclists will experience a much more inviting and friendly
environment than the current situation (see Figure 4). This is because there would be:
· slower motor vehicle speeds in bicycle and pedestrian areas,
· shorter crossing distances,
· a lower chance of conflicts with motor vehicles,
· shorter and simpler signal cycles, and
· creation of more inviting pedestrian and bicycle streetscapes.
-- Slower motor vehicle speeds in bicycle and pedestrian areas
The severity to pedestrians of pedestrian/vehicular accidents increases exponentially with vehicle
speed. Thus, even small reductions in vehicle speed will yield large improvements in pedestrian
safety. Further, vehicle speed is perceived, by pedestrians, as one of the most threatening aspects
of traffic. Thus, our proposal would be a major improvement for pedestrians and bicyclists
because the higher speed traffic would be relegated to the depressed section of Route 29, leaving
only the lower speed movements on the surface (i.e., Hydraulic Road and the ramps). The
10
remaining traffic which a pedestrian would encounter under our design would be the through
volumes on Hydraulic Road and the turning movement volumes between Hydraulic Road and
Route 29. The turning movements between Route 29 and Hydraulic Road would ali be low
speed movements, with drivers either preparing to make a low-speed (10-15 miles per hour) turn,
preparing to stop, or accelerating from a stopped condition.
-- Shorter crossing distances
Our design breaks the pedestrian walking distances across Route 29 into three shorter segments,
as opposed to the single large distance now needed to cross Route 29. Thus, east/west
pedestrians on Hydraulic Road would cross no more than 70 feet of pavement at any given time,
contrasted with the crossing of over 110 feet of a single intersection crossing on the existing
Route 29. Further, because the demand on intersection signal green time would be reduced, the
need for extra vehicle capacity through the use of such measures as multiple turn lanes would be
alleviated. Therefore, the number of turning lanes that pedestrians would need to cross likewise
would be reduced. This reduction in turning lanes would not only reduce the length of
pedestrian crosswalks, but would also remove one of the more confusing and threatening types
of pedestrian/vehicle conflict. Under our proposal, while the distance for a pedestrian to cross
Route 29 would be comparable in distance to the existing situation, the quality of these crossings
for pedestrians would be substantially different. This is because only the Hydraulic Road and
turning-movement traffic would be present, and the large volume of through traffic on Route 29
would no longer be encountered, but instead would be depressed, to the lower level.
-- Lower chance of conflicts with motor vehicles
Under our proposed design, pedestrians and bicyclists traveling through the intersection would
encounter a much friendlier and simpler environment than currently exists. For pedestrians
travelling along Hydraulic Road and crossing Route 29, our proposed design, by depressing
Route 29 under Hydraulic Road, would remove around sixty percent of all automobile traffic.
For pedestrians traveling along Route 29 and crossing Hydraulic Road, the removal of the Route
29 through traffic would not, in theory, change the number of pedestrian/vehicle conflicts arising
from through volumes and turning movement volumes on Hydraulic Road. However, the quality
of the pedestrian/bicycle environment and the sense of safety and security would be much greater
because of the presence of fewer nearby vehicles and because vehicles v~ould be travelling at
lower, less threatening speeds.
-- Shorter and simpler signal cycles
Our proposal would yield further benefits to pedestrians and bicyclists because of the reduced
number of signal phases. Reducing the number of signal phases would benefit pedestrians by
eliminating vehicle-only phases, at which pedestrian crossings are not permitted in any direction
and during which pedestrians must wait while vehicles move. Further, a reduction in the number
of phases would mean that the remaining phases, including the ones that permit pedestrian
movement, could become longer. This lengthening of the pedestrian phases would have the two-
fold benefit of (1) increasing the probability that a pedestrian would encounter a green phase,
11
Business
Pedestrians cross
three short sections
of pavement, not
one large one
Relocated
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property
(access
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~f property
(acces~aintained)
Wine
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Figure 4
5cale~ in Feet I ~ ·
0 80 160
Proposed Grade Separated Intersection
thereby reducing the waiting time and (2) increasing the length of the crossing time before the
"Don't Walk" indication would appear.
-- Creation of more inviting pedestrian and bicycle streetscapes
The frontage roads/ramps under our proposal would provide an opportunity for an attractive
pedestrian environment that does not exist, and never will be possible, with the-existing at-grade
intersection. Under the proposal, the road frontage would become essentially an attractive, low-
speed, low-volume local street for a distance of 500-800 feet. The large volume of through
traffic on Route 29 would be depressed, and therefore far less visible from the road frontage than
at present. As redevelopment occurs in the intersection quadrants, it is reasonable to expect that
new buildings would be sl~ted to take advantage of the frontage and increased visibility along
these frontage roads/ramps. As properties form a continuous street front along the frontage
roads/ramps, the walking and biking environment would become more positive and attractive.
d. Land Use Benefits
Under our proposal, access to all of the properties in the area of the intersection would remain
either unchanged or improved. Superficially, it may appear that access to properties along Route
29 under our proposal would be less attractive than the e:~isting situation. In actual practice,
however, existing access is already seriously deteriorated. For almost all of the frontage along
Route 29 in the vicinity of Hydraulic Road, the placement of the median already dictates a right
turn in/right turn out only method of vehicular access to properties. Even where a median does
not prevent full access (i.e., all tums in and out), the width of the road (in the case of Route 29,
eight lanes) and the volume of traffic effectively eliminates this option or, at the very least,
diminishes the safety or feasibility of anything other than right-in/right-out access. Under our
proposal, right in/right out access from both Hydraulic Road and Route 29 would be continued in
all cases. And while some left turn movements would be eliminated, this type of access would
still be facilitated in a much safer and accommodating manner through dedicated U-turn lanes
and the Hydraulic Road overpass over Route 29.
-- Property access along Route 29
Under our proposal, properties along Route 29 would continue to have right-in/right-out
driveway access. Access would be from a two-lane/three-lane frontage road/ramp, however,
rather than from the outer of eight lanes of traffic on existing Route 29. Further, these frontage
roads/ramps would be connected to each other by "U-tums" immediately to the south and to the
north of Hydraulic Road. Thus, travel between origins and destinations in the intersection
quadrants could be accommodated on low-speed local streets (i.e., the frontage roads/ramps) and
the U-tums, and need not be detained at the traffic signals on Hydraulic Road. In some
instances, the access would be improved, since the frontage roads/ramps will be a more
"business-friendly" street than the outer lanes of the existing Route 29.
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To illustrate under our proposal how one would access properties along Route 29 on the "far
side" of the intersection (i.e., on the east side of Route 29 to the north of the intersection, and on
the west side to the south), the motorist would simply exit onto the frontage road/ramp prior to
crossing under Hydraulic Road, cross Hydraulic Road at grade on the frontage road/ramp and
continue to their destination using the frontage road/ramp. Visibility of the businesses could
also be facilitated by providing signage indicating that access to these properties is via the
frontage road/ramp. Please see Figure 5.
-- Left turn movements
All of the fronting properties along Route 29 would gain enormously from the "U-tums"
provided to either side of the Hydraulic Road crossing. These U-tums would overcome the
difficulties of motorists exiting from fronting properties and wanting to turn left onto Route 29.
Motorists could simply turn right onto the frontage road/ramp, proceed to Hydraulic Road, make
the "U-turn" and follow the connecting frontage road/ramp to Route 29 in the desired direction.
Please see Figure 6 a. There are numerous other instances in which access to properties
immediately adjacent to the intersection would be simplified. For example, motorists
northbound on Route 29 could reach the Holiday Inn simply by making the U-turn from the
northbound frontage road ramp to the southbound frontage road ramp, then entering the
driveway to the Holiday Inn. Please see Figure 6 b.
-- Property access along Hydraulic Road
It should also be recognized that, for all properties along Hydraulic Road, access to/from Route
29 would be greatly improved simply because of the removal of traffic from the intersection.
The remaining traffic (i.e., through traffic on Hydraulic Road and turning movements between
Hydraulic Road and Route 29) would be accommodated on the proposed intersection with free-
flowing level of service.
Under our proposal, some small property takings would be required for the parcels immediately
adjacent to the intersection quadrants. The most extensive of these impacts would likely be
related to the Exxon service station, which is currently undergoing redevelopment and which is
located at the southwest quadrant of the intersection. The site would still support this use, but
some elements would have to be reconfigured.
-- Cross-access easements and parking
With some creative mitigation measures, the loss of property access as a result of our proposal
need not mean the loss of a useable site. For example, looking at the business college, it is
entirely possible that some partnership arrangements complementary to the design could remedy
the construction-related problems without taking the property. Cross-access easements with
adjacent properties to restore access to affected properties would be one such solution. A
partnership measure between the Holiday Inn and the Business College could completely remedy
a loss of access caused by the road reconfiguration.
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Enter properties
from Frontage Road/Ramp
Cross Hydraulic Road
at signal
Exit from Route 29
onto Frontage Road/Ramp
Figure 5
e i g u e r e rie i Fr ge s
Driver exiting business
rrnkes "left turn"
onto Route 29 byturning
right and rrnking "U-Turr~"
Merge onto Route 29
Hkiwtg 8C
NghvVwtp O qxgo gpvu
"U-Turn"
"U-Turn"
Ddver entering business
rrnkes "left turn" from
Route 29 by exiting at
ramp and making "U-Turr~"
Hkiwtg 8D
Nghv Vwtp 0 qxgo gpvu
Exit from
Route 29 on ran-lo
Figure 6A, 6R
e ur e e $
The cross-access easement is one of the most useful measures in mitigating the impact on
property values of land acquisition for highway widenings. Under this type of easement, the
owner of property grants permission for through traffic (i.e., traffic with neither origin nor
destination on the subject property) to pass across the subject property. Cross-access easements
add more vehicle access routes to the destination and usually the granting properties, thereby
increasing their value. Gaining additional access routes is particularly important at major
intersections, such as the Hydraulic Road/Route 29 intersection, where the size of the road,
medians, deceleration lanes, acceleration lanes and other traffic-mandated features have eroded
the access to fronting properties. As vehicular access from major roads (such as Route 29)
becomes more difficult due to the increasingly severe traffic control measures, the value of
alternative routes becomes greater.
Cross-access easements can give vehicular access to traffic signals to properties that otherwise
would not have such access. While not an important consideration on low-volume streets where
turning movements can be easily made without traffic signals, such access becomes critically
important as traffic volumes grow to levels (as on Route 29) that make entry/exit virtually
impossible at non-signalized locations.
Cross-access easements are instrumental in promoting the shared use of parking, the essential
prerequisite to creating a walkable destination. Rather than viewing parking space immediately
adjacent to their final destination as a necessity, motorists adopt a driving/walking pattern that
accepts parking at a wide variety of locations, with extended walking trips to multiple
destinations. This characteristic, long a feature of established town centers such as downtown
Charlottesville, is one of the most valuable and sought after ref'mements to conventional strip
development such as that now bordering Route 29.
Cross-access is routinely negotiated in commercial areas, including the most conventional of
strip development patterns. Frequently, cross-access easements are required by public agencies,
as a part of the development approval process for new or redeveloping properties. However,
voluntary arrangements for cross-access are also common, particularly where individual property
owners derive a mutual benefit. Cross-access agreements are low-cost or no-cost actions.
Generally, they result in no change in insurance cost or operating cost, since typically the
pavement involved in cross-access has already been in use as a roadway, and simply is
continuing in the same use.
Lost parking can also be restored in the same manner. Frequently, adequate replacement parking
is available on adjacent or nearby properties, in currently underutilized spaces or in newly
developed spaces. Simple new connections, such as cross-access easements, alleys, back service
roads, or extensions of local streets can provide the needed connection between the new parking
and the destination, and therefore remedy the loss of parking and eliminate the need to "take"
the affected property.
As c,,ommercial development matures and becomes more valuable, its parking evolves away from
the 'building side" pattern (with all parking immediately adjacent to the destination building)
and moves toward the "park once" pattern with multiple concentrations of parking (sometimes
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structures) equally useable by numerous destinations, all linked by an attractive walking
environment. As parking evolves in this manner, the overall parking requirement for an area
drops to around half of its previous level of 5.0-6.0 spaces per thousand square feet of occupied
floor area. Thus, as the area surrounding the US29/Hydraulic Road intersection begins to
respond to the increased value of the location and the improved access, the resulting land pattern
would likely yield a decrease in parking ratio, permitting greater intensity of use with relatively
fewer parking spaces.
B. Make Complementary Improvements to the Local Road Network
In addition to creating a grade-separated intersection at Route 29 and Hydraulic Road, there are a
number of complementary improvements to the local road network in the surrounding
community that would improve the effectiveness of our proposal, increase accessibility of this
area, and aid future redevelopment of the area.
Creating a well-connected network of local streets serving the properties along Route 29 and
Hydraulic Road is a highly desirable planning goal, even if the grade-separated intersection were
not built. For one thing, creating roads that run parallel to Route 29 would reduce congestion on
Route 29 since a network of roads would allow some of the local traffic currently funneled onto
the highway to use alternative routes. A well-connected network of local streets would permit
drivers to reach destinations along Route 29 without being required to use Route 29, and
consolidate the entry/exit movements to/from Route 29 onto mid-block points at which they can
be best controlled.
The extension and connection of Hillsdale Drive is an excellent demonstration of how: (1) such
connections could be achieved with small, incremental and reasonable measures, and (2) the
great benefits to traffic flow that would be derived from such connections. The Charlottesville
City Council passed a resolution dated December 4, 2000, endorsing the extension and
connection of Hillsdale Drive from Greenbrier Drive to Hydraulic Road. The MPO also
endorsed the Hillsdale Drive connector in its recently adopted TIP.
A continuous connection, parallel to Route 29, between Hydraulic Road and Greenbrier Drive, a
distance of some 0.7 miles, could be obtained by piecing together existing streets and
intersections, and adding two small new segments of street. See Figure 7. One such new
segment would be a connection between Line Road and Hydraulic Road that would pass to the
east side of the K-Mart and the movie theater that is now closed. The second new connection
would connect Seminole Court to the entrance road to the Pepsi Plant, which, in turn, connects to
Greenbrier Drive. With these two additional links in place, there would then be a continuous
road between Hydraulic Road and Greenbrier Drive. Its routing would follow a new segment of
road northward from Hydraulic Road, passing to the east of the K-Mart and the movie theater,
then curving westward to connect with Line Drive, then to Zan Road and to Seminole Court,
then following Seminole Court to its current ending behind the shopping center.
For the new segment between the ending of Seminole Court and the Pepsi entrance road, there
are two placement options: (1) to the east of the Pepsi Plant, between the Plant and Meadow
15
Creek, connecting with Pepsi Place and (2) to the west of the Pepsi Plant, bet~veen the Pepsi
Plant and the Post Office, then connecting with Pepsi Place. Although advantages can be cited
for either alignment, the balance of factors appears to favor a route to the west of the Plant.
Unlike an alignment to the east of the Pepsi Plant, a route to the west of the Plant would avoid
the Meadow Creek natural area. In addition, it would create a new road that would be fronted on
both sides (double-fronted road), always desirable when creating new street network. Further,
the length of connection would be less than with a route to the east of the Pepsi Plant. Also, the
cost might be less, due not only to the shorter length but also to the avoidance of fill and
mitigation actions that would be required because of the proximity to Meadow Creek with the
eastern alignment.
The benefits of the road (i.e., connection and completion of the network) would accrue
immediately upon the completion of the two currently missing links. Once in use as a
connecting roadway, the road could be continuously improved in small increments. Such
improvements could include changing the alignment of intersections so that through traffic on
the new connector road would have the right-of-way and the more direct and smoother traffic
flow, straightening the sharper curves at non-intersection locations, and giving the entire
connector a more street-like appearance through uniform lighting, plantings, curb and gutter
treatment, sidewalks, and other minor design elements.
The benefits of the connection would be large and would be felt immediately. All commercial
properties on the east side of Route 29 between Hydraulic Road and Greenbrier Drive would,
with the completion of the Hillsdale Drive connector, have access to both Hydraulic Road and
Greenbrier Drive without needing to use Route 29 at all. Thus, much of the market area served
by the commercial destinations in this segment of roadway would no longer be "hostage" to
Route 29 for access to their destinations. The resulting benefits, to both the travelers with
destinations in the area and all users of Route 29, would be substantial. There is already around
350,000 square feet of commercial floor area in the sector to the east of Route 29, between
Hydraulic Road and Greenbrier Drive. This existing floor area can be expected to generate
around 17,000 daily trips. With a full Hillsdale Connector in place, the great majority of these
trips would be freed from the need to use Route 29, and could instead reach their commercial
destinations entirely through the use of Hydraulic Road/Greenbrier Drive and the internal
connections reached through Hillsdale. Completing the buildout of the 85 acres in the sector east
of Route 29 between Hydraulic Road and Greenbrier Drive would double the amount of
commercial floor area to a total of about 700,000 square feet. Thus, the importance of the
Hillsdale Connector in serving this volume of traffic (which could grow to around 35,000 daily
trips) is enormous and obvious.
C. Foster "Smart Growth" Development in the Area
The effectiveness of the improvements of the Route 29 and Hydraulic intersection proposed in
this report are in large measure dependent upon the pattern of development in this area. In order
to facilitate mobility and promote a variety of travel alternatives, any future development in this
area should be guided by "smart growth" principles, rather than continue the existing sprawl
development patterns in the area. Development in accordance with "smart growth" principles
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will help to ensure the effectiveness of the preferred design alternative described in this report.
These principles are reflected in the City's Corridor Study and the County's Development Areas
Initiative Steering Committee neighborhoods. In summary, particular attention should be paid
to the following:
New development should be appropriately scaled and compatible with the surrounding
community.
· New development should be sensitive to the environment and terrain of the site.
· New development should be comprehensively linked to the surrounding Community via
pedestrian and bicycle infrastructure.
· New development should be easily accessed by motor vehicles via a network of
comprehensively networked, primarily non-residential streets.
· New development should contain a mixture of complementary land uses (i.e., offices,
residential and retail) at modestly high densities and clustered in close proximity to one
another.
Such a "smart growth" pattern, by allowing pedestrians, bicyclists, buses or single auto trips to
access multiple destinations, can dramatically lower any future need to expand the highway
facilities in this area. Furthermore, such patterns of development offer a more valuable use of
these lands than the current auto-oriented sprawl pattern. In fact redevelopment of early strip
commercial areas is now becoming an important trend in shopping center development. A
"smart growth" pattern also would offer an environment that enhances rather than detracts from
the Charlottesville and Albemarle County community.
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