University Neighborhoods Revitalization Plan CONCEPT DOCUMENT

Core Value #4: The University District shall be a neighborhood of choice.

This is one of five chapters that address safety and law enforcement, community schools, circulation, transit, and parking of the Neighborhoods. Being a neighborhood of choice requires that streets and parking areas are safe and access is adequate to public transit and other key services such as quality community schools.

Vehicular Circulation

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Improving the District circulation is essential to improving the quality of life in the residential Neighborhoods. Discouraging major traffic through quiet Neighborhoods and directing that traffic to the major community job generators such as The Ohio State University is a goal of the Plan. Similarly, commercial establishments in the area require a well-defined and recognizable street pattern that affords customer accessibility and allows for adequate service. The definition and recommendations of the street hierarchy/circulation and the issues of defensible space are discussed in Chapter 12.0.

12.0 VEHICULAR CIRCULATION

A. Objectives

Solving many of the University Neighborhoods’ problems will benefit from a circulation system that is easily accessed and understood. The quality of life within a residential neighborhood is determined by the relative degree of convenient movement afforded to its residents. Likewise, retailers and other businesses within the High Street Corridor depend on regional and local accessibility and adequate service alleys. Many of the issues discussed in this chapter are also linked to Chapters 13.0 and 14.0 (Transportation Alternatives and Parking).

The following objectives are the basis for the policies and recommendations discussed below:

Objective 1: Enhance regional accessibility and improve District circulation.

Objective 2: Enhance neighborhood access and circulation by regulating traffic flow, cut-through traffic, and travel speeds on local streets to enhance safety and quality of life within the Neighborhoods.

Objective 4: Enhance vehicular access and circulation along the High Street Corridor.

B. Policies and Recommendations

Policy 12.1: Define a roadway system for the University Neighborhoods delineating a clear system of primary streets and neighborhood circulators for people moving either to, through, or within the District.

Recommendation 12.1.1: Maintain the major points of access to the District as Hudson Street, 17th Avenue, 11th Avenue, and 5th Avenue on the east; Dodridge Street, Lane Avenue, and 5th Avenue on the west; High Street and Indianola Avenue (north of Hudson Street) on the north; and High Street, Summit Street, and Fourth Street on the south. Discourage non District related traffic on other streets.

Recommendation 12.1.2: Over the near term retain Summit Street and Fourth Street as one-way minor arterials through the District, but diminish their traffic impacts by removing parking restrictions, creating landscaped neckdowns to narrow the physical width of the pavements (primarily at crosswalks), and maintain a 35 mph speed limit with recalibrated traffic signals and increased enforcement. Reevaluate two way operation in the future if traffic demand changes due to circulation revisions.

Recommendation 12.1.3: Retain High Street as a major north-south arterial but enhance its role as a major transit corridor connecting routes both within the University District and outside the region.

Recommendation 12.1.4: Create 11th Avenue as a single major collector from the east to High Street.

Policy 12.2: Create a second tier of roadways for internal movement within each neighborhood.

Recommendation 12.2.1: Recognize the following roadways as neighborhood collectors/circulators within the District: Neil Avenue (between Dodridge Street and Lane Avenue), Lane Avenue (between High Street and Summit Street), West 10th Avenue (between Neil Avenue and High Street), King Avenue / 7^th Avenue (east to Fourth Street), and Neil Avenue (north to West 10th Avenue). East Woodruff Avenue (between High Street and Summit Street), Indianola Avenue, East 15th Avenue (between High Street and The Conrail Tracks), and East 12th Avenue (between High Street and Summit Street).

Policy 12.3: Provide two-way circulation on neighborhood streets, where possible, being particularly sensitive to parking needs.

Recommendation 12.3.1: Convert the following street segments to two-way operation: West 10th Avenue, East 11th Avenue, West 11th Avenue, East 12th Avenue (between High Street and Summit Street), East 15th Avenue (between Pearl Street and Fourth Street), and West Patterson Avenue. Realignment to two way traffic should occur only after provisions are identified for replacing on street parking lost to traffic lanes.

Policy 12.4: Minimize the volume of traffic passing through the Neighborhoods through the application of traffic-calming techniques and where necessary to address crime mitigation using street closures.

Recommendation 12.4.1: Modify Big Four Alley by creating a series of closed loops which provide local circulation but eliminate the use of the street as a raceway and convenient corridor for criminal activities.

Recommendation 12.4.2: Retain while improving the appearance of the alley barriers on the east and west sides of Indianola Avenue north of 5th Avenue to control access for illegal activities.

Recommendation 12.4.3: Examine street closures at 6th Street and 5th Avenue, 5th Street and 5th Avenue, and Hamlet Street and 5th Avenue to increase redevelopment potential while creating defensible neighborhoods along Weinland Park’s southern perimeter.

Recommendation 12.4.4: Close the short section of Perry Street between West 8th and 9th Avenues to prevent commuter use of this predominately residential street. However, access for emergency vehicles must be retained.

Policy 12.5: Provide proper access and circulation for Ohio State and its related facilities and for businesses along the corridor (including service vehicle access).

Recommendation 12.5.1: Encourage and support the prompt widening of Lane Avenue west of High Street to provide two through lanes in each direction (plus turn lanes) and ensure that all traffic movements are installed and permitted at the Lane Avenue/High Street intersection.

Recommendation 12.5.2: Widen and improve Wall Alley from Lane Avenue to Northwood Avenue to provide two-way operation.

Recommendation 12.5.3: Widen and improve Pearl Street between East Woodruff Avenue and East 11th Avenue to provide an efficient service corridor.

Recommendation 12.5.4: Retain the existing street closures on the east side of High Street, and upgrade with public amenities as per recommendation 3.1.7.

Recommendation 12.5.6: Explore a direct connection of an improved two way East 11thAvenue to West 10th Avenue. Options should be explored as part of a larger redevelopment planning effort for the High Street area south 12th Avenue, North of East Nineth Avenue, and between Indianola and Michigan Street.

Recommendation 12.5.6: Relocate the existing traffic signal from the Chittenden Avenue/High Street intersection to the West 11th Avenue/High Street intersection. As an alternative, consider, directly connecting Chittenden to West 11th Avenues (eliminating the offset) with signalization provided as appropriate.

Recommendation 12.5.7: Improve traffic operations at the intersection of High Street with West and East Woodruff Avenues through traffic control modifications to provide proper access for the northern terminus of an improved Pearl Street. Any modification must recognize that Ohio State wishes to discourage through-traffic on West Woodruff Avenue and such plans should not be implemented until improvements are made to the Lane Avenue corridor.

Policy 12.6: Coordinate the access and circulation system with major pedestrian routes to provide safe pedestrian crossings.

Recommendation 12.6.1: Explore a new access route to Pearl Street at the existing traffic signal that serves the major Ohio State pedestrian corridor along the "old" West 17th Avenue alignment.

Recommendation 12.6.2: Provide pedestrian crossings of High Street only at signalized intersections.

Policy 12.7: Link the access and circulation system with parking facilities.

Recommendation 12.7.1: Install a traffic signal at 14th Avenue to provide safe pedestrian crossing and to accommodate vehicular access for the Ohio Union and adjacent parking structure(if there is not a detriment to the traffic system).

Policy 12.8: Improve access to Tuttle Park.

Recommendation 12.8.1: Explore conversion of Patterson Avenue, west of High Street, to two-way operation.

Recommendation 12.8.2: Explore expansion of Patterson Avenue into Tuttle Park.

Recommendation 12.8.3: Relocate the traffic signal being removed at the intersection of Neil Avenue and Oakland Avenue to the Patterson/Neil intersection (if the signal warrants are satisfied and there is not a detriment to the traffic system) to provide safe vehicular and pedestrian access for Tuttle Park.

Recommendation 12.8.4: Provide bicycle access along Patterson Avenue to Tuttle Park consistent with Bikeways and Open Space plans.

Policy 12.9 The alleys within the University District provide a valuable resource to support trash collection and off-street parking access. Their functionality should be improved, but their role as a major part of the community circulation system should be diminished.

Recommendation 12.9.1: Develop a strategy for evaluating, prioritizing and implementing upgrading of alleys within the East, North and South Campus Neighborhoods. Intent should be to provide consolidation of parking and increase trash capacity through a comprehensive redevelopment of all exterior space within the alley corridor (building rear to building rear).

Recommendation 12.9.2: Prioritize improvements to other alleys in other neighborhoods, seeking to upgrade paving and lighting only to the extent that it supports functional use of the alleys as a functional asset to the adjoining houses. Upgrades that improve the alleys to the point that cut through traffic is increased (i.e. significantly better paving) should be avoided.

Recommendation 12.9.3: In some areas examine speed bumps and stop signs on the alleys at street intersections to deter current high speed traffic moving through alleys.

C. Setting and Current Issues

The analysis of transportation conditions for the University Neighborhoods area has considered all modes: access and circulation, parking, public transportation, and non-motorized modes. The Ohio State University campus is a very large generator of transportation demand and affects the surrounding area in many ways. The study area includes a substantial residential area plus commercial corridors along High Street and Lane Avenue. All these elements define, impact, and require transportation service.

The major challenge is to balance these needs. This balance requires management of fixed resources, principally the public rights-of-way, plus strategies to promote greater use of transit and non-motorized modes. However, it is recognized that market conditions of certain components of the Plan for the area will require investment in additional parking supply and good-quality access.

The transportation system serving the University Neighborhoods has the following elements:

Vehicle access and circulation

Goods delivery, maintenance, and servicing

Transit (Chapter 13)

Bicycle and pedestrian (Chapter 13)

Parking (Chapter 14)

The following statements list major problems and issues related to transportation and parking:

The transportation system and traveler response is auto-dominated, with a resulting high demand for parking space.

There is extreme competition for parking space in areas around the campus edge, where land resources are limited.

Transit is relatively ineffective in terms of Ohio State or regional travel. COTA's ability to improve service is constrained; however, if the agency can obtain more funding, opportunities for better use may increase.

Maintaining current levels of parking supply may cause problems to escalate such that people may decide to use other modes or park outside the area. That is the problem may evolve to an equilibrium condition. However, two situations must be considered: if parking is not added, development potentials along the commercial corridors may suffer; on the other hand if additional parking spaces are provided, they may encourage additional auto trips and continue to aggravate the existing traffic problems.

The residential parking permit system appears to achieve the desired protection of the local parking supply; however, its application is not uniform. Current policies allow for changes in the system that can lead to an unstable parking situation.

Transportation impacts on quality of life within the University District are due in part to Ohio State and commercial land-uses. The reverse is also true in that the needs of the residential areas place constraints on commercial areas, which may cause the commercial areas to be less successful and result in marginal uses that, in turn, negatively impacts the District (a never-ending cycle).

The deteriorating condition and social structure in the southeast sector of the study area invites criminals and illegal/improper behavior. The role of Chittenden and 11th Avenues as arterials is having negative impacts by upsetting the normal functions of this neighborhood. In addition, discontinuities exist at High Street diminishing accessibility to the southern portion of the university and medical center complex.

The impact of High Street and the Summit Street/Fourth Street one-way pair is to define subregional travel corridors through the area. This creates conflicts between the need for accessibility in the study area and efficient through movement.

Many of the streets have a narrow right-of-way and narrow pavement (less than 30 feet), which creates conflicts between parked cars and moving traffic. Ultimately, the slow speed induced by a great deal of curb parking may be the solution to through-traffic penetration of the District.

One-way traffic operations can be confusing, especially to visitors, and around-the-block circulation can be limited. However, the one-way operations on local residential streets permits more on-street parking and the inconvenience of one-way operation deters through-traffic and can be viewed as a strategy to protect the Neighborhoods.

The access control/management concept along the High Street Corridor must be improved. Traffic signal placement, the location of local intersections, pedestrian crossings, bikeway crossings, and access to commercial parking need to be examined to achieve the optimal relationship with land-use/development concepts. The High Street commercial district has both a local and subregional trade area; therefore, parking and access need to be more direct from regional access routes. Proper service vehicle access must also be provided for existing and new businesses.

With the advent of the new Ohio State arena, the relocation of certain events to St. John Arena, the construction of the new College of Business, and other developments along the Lane Avenue corridor (particularly near Tuttle Park Place), parking supply and control measures will need to be addressed to yield an effective parking system.

From a functional perspective, the existing street system has four parts:

Regional Accessibility. Primary regional access is available via I-71 and SR 315. Other access is provided by US Route 23 (from the north via Indianola Avenue), High Street, and 5th Avenue. The key linkages are provided at interchanges along the two freeways, including I-71 at Hudson Street, 17th Avenue, and 11th Avenue, and SR 315 at Ackerman Road/Dodridge Street, Lane Avenue, and 5th Avenue.

Arterial Streets. Within the area, there are several north-south arterial streets including High Street, Summit Street, Neil Avenue south of the campus, and Fourth Street. In the east-west direction there are Dodridge Street, Hudson Street, Lane Avenue, Chittenden Avenue (east of High Street), 11th Avenue (east of High Street), and 5th Avenue.

Major Collector Streets. Within the area, there are a few major collector streets which supplement the arterial street system and provide access to subsections of the area. These include Neil Avenue north of the campus, Indianola Avenue (south of Hudson Street), 17th Avenue (east of Summit Street), 15th Avenue (west of Fourth Street), Woodruff Avenue/Woody Hayes Drive, and 10th and 11th Avenues (west of High Street).

Local Streets. The remaining portion of the access and circulation system is the local streets, which are organized in a grid configuration that is relatively uniform in most of the area. Some discontinuities exist in four locations: (1) in the north-central zone of the study area, the orientation of the street system changes, forming some odd-shaped blocks and interrupting the pattern between High Street and Indianola Avenue north of Patterson Avenue; (2) the Iuka Ravine interrupts the pattern from High Street east in the area north of 16th Avenue; (3) along Summit Street, the continuity of east-west streets results in a series of "jog" and offset intersections north of 14th Avenue; and (4) along High Street there is a general discontinuity for most east-west streets, creating jog or offset intersections.

These discontinuities along the two major arterials are both an advantage and disadvantage. The advantage is that the offset helps local streets preserve a local function (i.e., the streets are less attractive as through routes). On the other hand, traffic operations along the two arterials are made somewhat more difficult because of the jogs, which cause short spacing between intersections, make placement of signals more difficult, and cause overlapping left turn movements.

Closely allied with the function and pattern of streets are street operations in terms of one-way traffic flow. The use of one-way streets has its basis in concern for parking space and traffic capacity/operations. For most of the local one-way streets, the presence of narrow streets (two- or three-lane-equivalent pavement width) has forced the decision to use one-way operation to allow for one or two lanes of on-street parking while preserving access and circulation.

Along Summit/Fourth Streets and Chittenden/11th Avenues, as two sets of one-way couplets, one-way operation has allowed provision of the lanes needed to achieve traffic capacity while still retaining on-street parking.

Goods movement is a significant requirement for the High Street commercial area. High Street land uses are served by alleys, especially Pearl Street, with some on-street loading from High Street and intersecting east-west streets. Truck access is difficult in many cases given the limited space along the alleys and the significant competition with parked cars for space. With limited service vehicle access via the alley system, many businesses rely on service from High Street; however, the currently designated allowable loading/unloading times severely restrict service vehicle activities for some businesses. A more efficient service vehicle access system is required for the commercial districts.

D. Programs and Concepts

The Thoroughfare Plan of the Columbus Comprehensive Plan designates the functional classification of roads to serve as a tool for local officials to help develop an orderly and efficient roadway system. The city of Columbus further describes roadways by design elements within the functional classification system. To achieve the circulation hierarchy presented in this plan, the following revisions to the City of Columbus Thoroughfare Plan, need to be taken:

Change Hudson Street from a Type 4-2 Arterial to a Collector between High Street and Indianola Avenue and extend this designation westward to Neil Avenue.

Add Neil Avenue between Lane Avenue and Dodridge Street as a Collector.

Delete Chittenden Avenue and make West 10th Avenue/East 11th Avenue a Collector.

Change Neil Avenue, between Fifth Avenue and King Avenue, from a Type 4-2 Arterial to a Collector and extend this designation on Neil Avenue to West 10th Avenue.

Change King Avenue from a Type 4-2 Arterial to a Collector and extend this designation, via East 7th Avenue, to Summit Street.

Add East Woodruff Avenue (between High Street and Indianola Avenue), Indianola Avenue (between Woodruff Avenue and 12th Avenue), and East 12th Avenue (between High Street and Indianola Avenue) as Collectors.

Add East 15th Avenue, from High Street to Fourth Street, as a Collector.

These proposed modifications will have to be reviewed and approved by the city of Columbus Traffic Engineering and Parking Division, Traffic and Transportation Commission, and Development Commission for recommendation of adoption by the City Council.

Summit and Fourth: One of the most controversial issues raised during the planning process was the treatment of the Summit Street/Fourth Street corridor. In the early stages of the planning process, a concept plan was developed that designated Summit Street as a single major arterial with Fourth Street downgraded to a collector status. This permitted the identification of discernible neighborhoods and permitted adherence to the goals of the functional classification system of roadways as presented earlier.

However, to accomplish this concept plan, significant roadway improvements would be required, including modifications at Hudson Street, widening of Summit Street south of 11th Avenue, and construction of a cross-over between Summit and Fourth Streets (perhaps north of 5th Avenue) to properly marry with the Third and Fourth Street one-way couplet in downtown Columbus at I-670. Such a system would also require the restriction of parking on Summit Street at all times.

The feasibility of implementing two-way operations on Summit and Fourth Streets was fully investigated as part of the planning process. Given regional travel demands and the physical constraints of providing proper roadway connections on the north and south ends of the corridor, it was concluded that it is not feasible to gain two-way operations while, at the same time, yielding a residential character to the streets. Beyond this, many residents within the corridor preferred the retention of one-way operations for traffic impact (i.e., experience peak traffic flows in either the morning or afternoon hours, but not both), safety for pedestrian crossing movements, and the ability to park on the streets.

For the above reasons, it is recommended that the one-way operations of Summit and Fourth Streets be retained at this time. However, it is further recommended that the current peak hour parking restrictions be eliminated and that landscaped neckdowns be constructed to narrow the physical width of the pavements--primarily at crosswalks. (The placement of these neckdowns must be carefully considered so as not to interfere with left or right turning movements that must be maintained at key cross-street intersections.) This concept is compatible with possible future two-way operations on Summit and Fourth Streets; however, it is unrealistic to pursue this change until there are major alterations in travel modes, patterns, and/or volumes within the region.

11th and High: Another item requiring further discussion is the recommendation to create East 11th Avenue as a single major collector and connecting it with West 10th Avenue at High Street. (This system would replace the one-way couplet of Chittenden and East 11th Avenues which marry with West 10th and 11th Avenues via off-set intersections at High Street.) There are many reasons for the recommended single two-way corridor, including: (1) with East 11th Avenue connecting with I-71 and passing under the Conrail Tracks it provides a continuous access route to High Street, Neil Avenue, and the Ohio State medical center complex, (2) it eliminates having to route westbound traffic to Chittenden Avenue, (3) it eliminates the impacts on land uses caused by a one-way pair through traffic, (4) East 11th Avenue becomes a logical break between neighborhoods, and (5) off-set intersections are eliminated.

The alignment and configuration of the West 10th Avenue/East 11th Avenue collector will be defined as part of the planning efforts for new developments in the area. Commensurate with the proposed realignment, it is recommended that two-way operations be installed on West 11th Avenue. As an option, it may also be desirable to connect West 11th Avenue directly with Chittenden Avenue. Clearly, more detailed traffic engineering studies will be required when plans are prepared for new developments in the zone. In addition, these planning efforts will have to address the issue related to the removal of on-street parking (as required for the conversion of the streets to two-way operations).

Figure 16: 11^th Avenue/Chittenden Avenue/High Street Intersection

High Street Corridor

Pearl Street: The role of Pearl Street, in conjunction with High Street, is to support existing and future development. To achieve this goal, the Plan recommends a major reconstruction of Pearl Street (see also Chapter 15.0). Only when Pearl Street can operate efficiently as the service corridor will High Street be able to attract the mix of tenants and users required for its renaissance.

The long-term goal should be to widen Pearl Street, from Woodruff Avenue to East 11th Avenue, to provide two-way operation with a minimum pavement width of 24 feet. Wherever possible, Pearl Street should be widened to at least 36 feet to provide service vehicle loading zones along the west side and metered parking on the east side. These Street widenings should be accomplished through the acquisition of land parcels on the east side of Pearl Street. The acquisition should be of sufficient depth to permit the construction of sidewalks, the installation of landscaping, and the consolidation of utilities along the east side of Pearl Street. However, at all intersections with east - west streets, this width should be necked sown to avoid creating a desolate band of paving between High Street commercial and the residential areas.

Primary emphasis should be placed upon the widening of Pearl Street south of 15th Avenue to East 11th Avenue. In the zone north of 15th Avenue, property acquisitions may be difficult or limited right of way constrained by significant existing structures may limit improvements to a 24 foot cross-section or less.

Figure 17: Possible Configuration of High Street/Pearl Street Corridor

High Street and Lane Avenue: The recommended improvements at the intersection of High Street with Lane Avenue cannot occur until the Lane Avenue corridor is improved. At present, the city of Columbus is undertaking feasibility studies for widening and improving Lane Avenue west of High Street. In general, the improvements will include widening of Lane Avenue to provide two lanes in each direction plus turn lanes. The recommended improvements shown in the following figure are compatible with these plans. Beyond improving the traffic carrying capacity of Lane Avenue west of High Street to SR 315, the construction of a northbound left turn lane on High Street is essential--a movement not currently permitted, thus causing traffic to use West Woodruff Avenue through the Ohio State campus or West Norwich Avenue to access westbound Lane Avenue. Beyond this, eastbound and westbound left turn movements from Lane Avenue to High Street are currently precluded, thus causing circuitous movements and unwelcome use of other streets in the area. Given the currently envisioned funding sources for the planned Lane Avenue corridor improvements and the inherent study/design/review processes, it is unlikely that Lane Avenue can be improved prior to year 2000.

Figure 18: High Street at Lane Avenue Improvements

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