Minto Island bridge master plan

8/3/2019 Minto Island bridge master plan

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TO:THROUGH:FROM:

SUBJECT:

ISSUE:

FOR AGENCY MEETING OF:AGENDA ITEM NO.:AN RENEWA_L AGENCY BOARD~ 1 0 ~

J HN H. WALES, DIRECTORBAN DEVELOPMENT DEPARTMENT

January 9, 20124.3 (b)

MASTER PLAN FOR THE MINTO ISLAND BICYCLE ANDPEDESTRIAN BRIDGE AND RELATED INFRASTRUCTURE

Shall the Agency Board adopt the attached Minto Island Bicycle and Pedestrian Bridgeand Trail Master Plan to formalize the project scope, summarize supporting actions, andstrengthen the Agency's ability to obtain external funding for the Minto Island Bicycle andPedestrian Bridge and Trail?RECOMMENDATION:Staff recommends the Agency Board adopt the attached Minto Island Bicycle andPedestrian Bridge (Bridge) and Trail (Trail) Master Plan (Master Plan) to formalize theproject scope, summarize supporting actions, and strengthen the Agency's ability to obtainexternal funding for the Bridge and Trail.BACKGROUND:


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Several plans and studies were completed to support development of the Minto Bridgeand Trail and an extensive public outreach campaign was initiated to obtain feedback onpreliminary Bridge design concepts.The City and Agency are now preparing to initiate the next phase of design, engineering,and permitting of the Bridge and Trail and will continue to pursue grant funding for designand construction. To articulate the scope of the projects and better position the City andAgency for future grant applications, the Minto Island Bicycle and Pedestrian Bridge andTrail Master Plan (Attachment B) has been created.FACTS AND FINDINGS:The Master Plan provides a summary of the Bridge and Trail project and actionscompleted to date, including funding, planning and public outreach, project purpose andgoals, supporting plans and policies, schedule, and project benefits. A summary of keyelements is included below.Actions to DateIn 2007, Boise Cascade, LLC discontinued operation of their downtown papermanufacturing facilities, leaving 13 acres downtown and 310 acres on the northern tip ofMinto Island available. Boise Cascade, LLC received a Letter of No Further Action fromthe Department of Environmental Quality (DEQ), and on December 17, 2010, executed anagreement with the City to allow construction of the Bridge landing and connecting Trailfrom the privately owned portion of Minto Island to Minto Brown Island Park.In 2008, OBEC Consulting Engineers completed a bridge design concept study. In theconcept design, the City considered alternatives including long and short bridge spans as


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There is broad public support for the Bridge and adjoining Trail. A local non-profit, TheFriends of Two Bridges (Friends), was formed in 2006 to support the Union StreetRailroad Bridge conversion and construction of the Minto Bridge and Trail, includingpursuing grants, volunteer labor, and public outreach. Several other key stakeholdershave expressed strong support for the project, including the Salem Audubon Society,Oregon Parks and Recreation, and the Downtown Advisory Board. A 2008 fundingrequest for the Bridge and Trail generated over 50 letters and 20 emails of support for theproject from individuals, private businesses, nonprofit organizations and public officials. InDecember 2008, a City initiated survey to solicit feedback on direction of the projectgenerated more than 90 percent approval from residents.The Bridge and Trail have been identified by business leaders and organizations ascentral to contributing to the vibrancy of Salem's downtown. Vision 2020 Action Teamleaders, including Salem Hospital, Willamette University, Travel Salem, Salem Chamber ofCommerce, Salem Keizer Transit (Cherriots), and the former downtown EconomicImprovement District, Go Downtown Salem, have championed the project.Supporting Plans and PoliciesThe Bridge and a connecting Trail to Minto Brown Island Park is an adopted FY 11-12Council goal and is identified in several supporting plans and policies, including theRiverfront Downtown Urban Renewal Plan, South Waterfront Urban Renewal Plan,Comprehensive Park System's Master Plan, the Salem Transportation Plan, 2011 -2035Regional Transportation Systems Plan, Salem's Vision 2020 Action Plan, and the UrbanLand Institute's 2006 'Strategies for Redevelopment of the Downtown Boise Cascade Site'study. In 2010, University of Oregon students participating in the Sustainable CitiesProgram cited the importance of increasing access to Salem's riverfront and adjacent


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Public Worlao Department

Minto Island Bicycle and PedestrianBridge and Trail


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MINTO ISLAND PEDESTRIAN BRIDGE AND TRAILConnecting Three Parks and Over 20 Miles of Trails

MASTER PLANJANUARY 9, 2012

ATTACHMENT B


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Executive SummaryThe City of Salem and Salem's Urban Renewal Agency (Agency) have been working toward a long-standing community vision ofconnecting three major urban parks, and more than twenty miles of trails via two pedestrian bridges over the Willamette R iver . In2009, part of this goal was realized with the renovation of the historic Union Street Railroad Bridge for bicycle and pedestrian travel,connecting West Salem's Wallace Marine Park with downtown's Riverfront Park. Completion of the Minto Island Bicycle andPedestrian Bridge (Bridge) and adjoining multimodal trail (Trail) is the last critica l link.Since 2007, the City and Agency have invested more than $100,000 to prepare for the Bridge and Trail and more than $1 ,200,000 tosupport the Union Street Railroad Bridge conversion. In 2008, a concept-design study considered four Bridge alternatives. InOctober 2010, City Council approved a tied arch Bridge design concept with a 14 foot wide deck. In December 2010, an easementagreement was executed to allow construction of the Trail and Bridge landing across the privately-owned Minto Island. In 2011, anagreement was reached to secure access across the Willamette Slough. The City and Agency are now preparing to initiate the nextphase of design, engineering, and permitting of both project components and will continue to pursue grant funding for design andconstruction.Project Highlights:

Low profile, tied arch bridge with 350 foot long span, connecting RiverfrontPark with Minto Island 3850 foot linear, 12-foot wide trail connecting Minto Brown Is land Park withprivately owned Minto Island and the bridge landing Bridge and trail will connect over 1000 acres of Parks and 20 miles of trails Two Urban Renewal Areas support the project: Riverfront Downtown URA(Bridge) and South Waterfront URA (Trail)IntroductionOver the last three years significant work has been completed to prepare for theBridge and Trail and in January, 2012 will begin conceptual design and permitting ofthe project. Fund raising and community outreach will begin in 2012 and continuethrough project construction. To formalize the scope of the project, the Minto Island Pedestrian Bridge and Trail Master Plan hasbeen created.Traveling north, the Trail will connect the Bridge to existing paved trails in downtown's Riverfront Park and the Union Street RailroadBridge, with connection to Wallace Marine Park and the Monmouth Bikeway and linking employment in the Wes t Salem industrialdistrict and commercial district to downtown and West Salem transit centers. Traveling south, the Trail will connect to existing MintoBrown Island Park paved trails (including a preferred route for year-round commuting), Homestead and River Roads, providing aMinto Bridge and Trail Master Plan Page 2


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safer, scenic route for commuting between West Salem, South Salem, and Independence, with access to transit in downtown andWest Salem.FundingThe Bridge and Trail are located in two urban renewal areas (URAs) ; the South Waterfront URA (Trail location) and RiverfrontDowntown URA (Bridge location). The adopted FY 11-12 Riverfront-Downtown URA budget includes $749,000 for Bridge designand permitting; additional funding will be allocated for the Bridge in subsequent fiscal years. The South Waterfront URA does nothave sufficient funding to design and construct the Trail. The connection between downtown and Minto Brown Island Park relies onboth elements. Grant funding will allow the Trail component of the project to keep pace with the Bridge design and permitting andensure that a full transportation connection is available when the Bridge is constructed.Planning and OutreachThere is broad public support for the Bridge and adjoining Trai l. A local non-profit, The Friends of Two Bridges (Friends), was formedin 2006 to support the Union Street Railroad Bridge conversion and construction of the Minto Bridge and Trail , including pursuinggrants, volunteer labor, and public outreach. Several other key stakeholders have expressed strong support for the project, includingSalem Audubon Society, Oregon Parks and Recreation, the Downtown Advisory Board, and the Vision 2020 Bicycle and PedestrianWorkgroup. A 2008 funding request for the Bridge and Trail generated over 50 letters and 20 emails of support for the project fromindividuals, private businesses, nonprofit organizations and public officials. In December 2008, a City initiated survey to solicitfeedback on direction of the project generated more than 90 percent approval from residents. In thewinter of 2008-2009 , an outreach strategy was implemented to obtain feedback on the conceptualbridge design alternatives. Feedback was obtained from affected neighborhood associations,advisory boards, interest groups, and others, including:

Salem Parks and Recreation Advisory Board Vision 2020 Action Team Vision 2020 Bicycle and Pedestrian Workgroup City Neighborhood Liaisons SCAN Neighborhood Association Salem Bicycle Transportation Alliance Croisan - llahee Neighborhood Association CAN-Do Neighborhood Association Grant Neighborhood Association South Salem Neighborhood Association Go Downtown Salem Board of Directors Downtown Advisory Board Salem Convention and Visitors Association Board Salem Bicycle Club

Minto Bridge and Trail Master Plan Page3


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Briefings were also initiated with Boise Cascade, LLC, Salem Audubon Society, Oregon Parks and Recreation, Willamette University,Salem Hospital, Oregon Department of Fish and Wildlife, A.C. Gilbert House, the Riverfront Park Carousel Board, and local runningand cycling groups.The Bridge and Trail have been identified by business leaders and organizations as central to contributing to the vibrancy of Salem'sdowntown. Vision 2020 Action Team leaders, including Salem Hospital, Willamette University, Travel Sa lem, Chamber ofCommerce, Salem Keizer Transit (Cherriots), and the former downtown Economic Improvement District, Go Downtown Salem, havechampioned the project.Outreach will continue on an ongoing basis through project construction. The City and Agency will continue to coordinate effortsclosely with the stakeholders identified above, the Friends of Two Bridges, and other interested parties. Several new methods fordisseminating information to the public will be explored.Project Purpose and GoalsThe Bridge, together with the Trail, will improve pedestrian and bicycle options, access,and safety by providing an off-street trail network between South Salem, downtown, andWest Salem for a variety of users. This new welcoming trail network will connectresidents to public transit, schools, entertainment, recreation, and major employment viaparks, natural areas, and waterways. The resulting expanse of trails and parkland willenhance commuting and recreation opportunities, improve resident health and we llbeing, attract recreational tourism, and contribute to new investment in downtown. TheBridge and Trail will enhance the Willamette Valley Scenic Bikeway, a state designatedbike route, by providing a safer scenic route, with minimal automobile conflict, comparedwith the current route.

Supporting Plans and PoliciesThe Minto Bridge and Trail are an adopted FY 11-12 Council goal and identified in several supporting plans and policies, includingthe Riverfront Downtown Urban Renewal Area Plan, South Waterfront Urban Renewal Area Plan, Comprehensive Park SystemMaster Plan, the Salem Transportation System Plan (TSP), 2011 - 2035 Regional TSP, Salem Vision 2020 Action Plan, and theUrban Land Institute's 2006 'Strategies for Redevelopmentof he Downtown Boise Cascade Site' study. In 2010, University ofOregon students participating in the Sustainable Cities Program cited the importance of increasing access to Salem's riverfront andadjacent parks, envisioning new housing and commercial uses connected by trails to the Union Street Railroad Bridge, RiverfrontPark, and Minto Park. The Trail and Bridge are consistent with the Willamette River Legacy Program which aims to improve accessto the Willamette River, including by expanding parks in the Willamette Greenway.Minto Bridge and Trail Master Plan Page4


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Relevant Legal AgreementsIn 2007, Boise Cascade, LLC discontinued operation of their downtown paper manufacturing facilities, leaving 13 acres downtownand 310 acres on the northern tip of Minto Island available. Boise Cascade, LLC received a Letter of No Further Action from theDepartment of Environmental Quality (DEQ), and in 2010, formalized an agreement with the City to allow construction of the Bridgelanding and Trail across Minto Island. In August 2011, an agreement was reached with the owners of the Willamette QueenSternwheeler to accommodate thei r business loss, assuming the low span tied arch bridge is constructed across the WillametteSlough, blocking the Sternwheeler's right to commercial navigation of the Slough.

Master Plan SummaryBridgeOn October 18, 2010, the City Council approveda tied arch bridge design concept (Alternative L-1)with a 14-foot wide deck which provides a lowprofile, 600 foot long clear span of the WillametteSlough. The design assumes connecting with theexisting paved path in Riverfront Park, to thenorth of the Eco Earth ball. The proposedconnection on Minto Island will land adjacent tothe existing gravel service road and fol low thatalignment on top of the berm to the existingpaved path approximately 3800 linear feet southat Minto Brown Island Park. These designassumptions will be reviewed by the selectedconsultant in early 2012. Additional designs maybe considered if they provide significant cost ortime savings while maintaining the overall intentof the project.

Minto Bridge and Trail Master Plan PageS


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Trail

CONCEPT DRAWINGSFORMINTO ISLAND MULTIMODAL TRAIL

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ImplementationSchedule

MonthsPreliminaryEngineeringEnvironmentalPermittingFmal Design&:BiddingBridgeConstructionIn Water Work(Session I)In Water Work(Session2)

Yearl Year2 Year3 Year4 Years

*Schedule assumes construction method requiring two in water work periods. This may not be required.Project Benefits

Transportation ConnectivityThe Bridge and adjoining trail will improve Salem's existing transit, bicycle, and pedestrian network for all residents by expandingaccess to transportation networks to and from downtown. By connecting major employment centers, schools, parks, commercialdistricts, and residential neighborhoods via a new off-street trail network, adjacent to public transit, this project contributes to thedevelopmentof a seamless multimodal transportation system.The Bridge and resulting connections provide for multimodal transportation options by "funneling" users into downtown's core withinclose proximity to local, regional, and national transportation modes, including Amtrak train, Greyhound bus, and Cherriots local andregional bus service, and east-west and north-south bike routes. Connection to key transportation routes is available at the southernMinto Bridge and Trail Master Plan Page 11


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and western terminus of the trail system, including the Willamette Valley Scenic Bikeway and West Salem transit center with localand regional routes (McMinnville and Newberg) and the Monmouth Bikeway.The Bridge and resulting connections represent Salem's first off-street commuter route, connecting residences with majoremployment. Daily travel between South Salem, downtown, and West Salem represents a significant number of short (less than 5miles) vehicle trips. In 2005, 33,336 employees resided within% mile of downtown and 125,000 vehicles per day traveled throughdowntown on the Marion and Center Street bridges (2005, COG). By providing a welcoming, accessible, scenic bicycle/ pedestrianconnection, it is expected a variety of users will access all, or a portion, of the network for theircommute.Economic DevelopmentConnecting three large urban parks along Salem's waterfront with more than 20 miles of trailsis expected to attract additional investment in downtown housing and commercial development.In June 2011, there were approximately 121 housing units in downtown (Salem DowntownCore Inventory, June 2011 ); additional resources are planned to incent a variety of housingtypes at a mix of income levels. Other investments are planned, or underway, which increasethe density of commercial and residential development downtown and strengthen the viabilityof the Bridge and Trail fo r commuting and recreation, including:

Redevelopment of the former Boise Cascade paper manufacturing facility into a vibrantmixed use center; up to 100 apartments are planned in its first phase. The site islocated just south of the Bridge landing, adjacent to Riverfront Park. Redevelopment south of Mission Street; zoning changes are envisioned to encouragehigher density commercial development and increase connections to Riverfront andMinto Brown Island Park Redevelopment of north downtown, including analysis of transportation circulation,housing needs, and related information to guide investments.The increase in recreational opportunities resulting from the Bridge and Trai l project are expected to increase demand for localbicycle and running equipment, retail, services, and restaurants in close proximity to the Trail. Greater demand for recreationalevents, such as marathons and bike races, increases opportunity for recreational tourism and related employment and investment.Given the Trail's proximity to downtown, downtown businesses are expected to benefit, just as the designation of the WillametteValley Scenic Bikeway through downtown has had a positive impact.

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Environmental SustainabilityThe Bridge and Trail build on the City's commitment to sustainability by restoring Boise Cascade's former landfill on Minto Island to aviable bicycle/pedestrian transportation corridor and natural area. The Trail is located in the Willamette Greenway and FEMAFloodway, so particu lar effort will be made to include environmentally friendly materials and methods, including: balance of soilfill/removal; inclusion of native plants and trees; and solar powered lights, where appropriate

L ., . :v.MI'JJ - The Bridge and Trail are expected to contribute to reductions in vehicle miles traveled (VMT)and overall Greenhouse Gas (GHG) emissions by providing a safe and enjoyab le alternativeto automobile travel between South Salem, downtown, and West Salem. In 2007, Salem'sbicycle commute mode split was 1.4 percent, an increase from 2000 (American CommunitySurvey, 2005-2007). Data from the 2011 bicycle counts and Statewide Bike CommuteChallenge illustrate that bike commuting is growing. Based on data from a 2008 survey, it isexpected up to 14 percent of residents will use the route for commuting, representing up to21,700 non-automobile commuters. Significant gains in ridership are expected given thelength of the planned Trail network (more than 20 miles), the dense population residing withaccess to the Trail , and the enhanced user comfort and safety, in comparison to existingroutes.Riverfront, Minto, and Wallace Marine Parks are Salem's most visited parks, representingalmost 1,000,000 visitors annually (City of Salem, Public Works, 201 0). Gains made byincreasing bicycle, transit, and pedestrian access for all, or a portion of travel to these parks,will increase the use of sustainab le transportation and reduce GHG and VMT.Community LivabilityThe Bridge and Trail are expected to attract new bicyclists and pedestrians, includingbeginning cyclists, children, and families to Salem's largest network of off-street trails.Salem's access to parks and recreation is very limited without reliance on the automobile.However, by providing a safe, no cost, welcoming alternative to automobile commuting towork/school, alternative mode trips are expected to increase.

Although approximately 60 percent of Salem's streets contain bike lanes, the network lacks an adequate number of off-street pathsand/or lower volume routes to make bicycling for families, youth, and non-expert riders a safe, accessible, and enjoyabletransportation option. By drawing these bicyclists to the Trail for recreation first, it is expected over time these individuals will expandthei r use. Rather than driving to Minto Brown Island Park, Riverfront Park, or Wallace Marine Park, residents with access to the Trailand Bridge, may walk, bicycle or use transit for all or a portion of their trip. It is likely these individuals may expand their use of theTrail to include commuting to work or school, as has been evidenced with the completion of the Union Street Railroad Bridge. On aweekday in April 2011, 930 individuals were counted traveling across the Union Street Railroad Bridge during a seven hour period(Salem Public Works Development, April 19, 201 1 .Minto Bridge and Trail Master Plan Page 13

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