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1 Conceptual Alternatives Study

1-7511-475 Interchange Improvements The City of Toledo, Ohio LUC-75-4.52, PID 23648

Prepared for

The Ohio Department of Transportation, District 2 3 17 Poe Road

- 4

Bowling Green, Ohio 43402-1 330

Prepared by

HNTB Ohio, Inc. 330 West Spring Street, Suite 310 Columbus, Ohio 432 15

March 2004 (Revised June 2004)

Table of Contents

I . Introduction .................................................................................................................. 1

A . Project Overview ............................................................................................... 1

B . Project Study Area ........................................................................................... 3

I1 . Environmental Issues

A . Cultural Resources ............................................................................................. 4

B . Section 4(f) Resources ...................................................................................... 5

C . Ecological Resources ......................................................................................... 6

D . Hazardous Materials ........................................................................................ 1 0

E . Environmental Justice ...................................................................................... 1 1

111 . Public Involvement Summary

A . Steering Committee ......................................................................................... 12

B . Task Force ........................................................................................................ 13

C . Public Meetings ............................................................................................... 14

D . Website ............................................................................................................ 15

E . Project Newsletters .......................................................................................... 15

F . Public Comments and Action Taken ............................................................... 15

IV . Alternative Comparison

A . Preliminary Conceptual Alternatives ............................................................. 1 7

B . Recommendations for Further Alternative Development ............................. 18

C . Maintenance of Traffic Issues .......................................................................... 22

D . Alternative Summary Matrix ........................................................................... 26

List of Figures

Figure 1 : Project Study Area ..................................................................................................... 3

.................................................................................... Table 1 : Estimated Terrestrial Impacts 9

List of Appendices

A . Title Sheet & Typical Sections ............................................................................ B . Traffic Volumes ...................................................................................................

............................................................ C . Alternative Maps (Under separate cover)

Ohio. Inc . Conceptual Alternatives Study Page ii

.......................................................... D. Phase I History/Architecture Survey Maps

.................................................................................................... E. Utility Contacts

............................................................................................. F. Steering Committee

G. Task Force ........................................................................................................... ................................................................................................... H. Public Meetings

................................................................................................................ 1. Website

.............................................................................................. J. Project Newsletters

................................................................................................. K. Public Comments

Ohio, Inc. Conceptual Alternatives Study Page iii

- I. Introduction

This Conceptual Alternatives Study for the 1-7511-475 Interchange Improvement Project was prepared in accordance with the requirements of the 14-Step Project Development Process, as specified in Section 1403.3 of the Ohio Department of Transportation's Location and Design Manual, Volume 3. This purpose of this document is to describe and compare a set of conceptual alternatives developed to meet the project purpose and need while minimizing impacts to identified red flag areas. The information included in this report will be utilized to select a set of feasible alternatives for detailed environmental and design study.

A. Project Overview

Interstates 75 and 475 in Toledo, Ohio are a part of an urban highway system that serves several transportation needs. These interstates provide access for long-distance traffic traveling from the south to the north and provide connections between other interstates and highways in the greater Toledo area. Local traffic traveling between surrounding communities, commercial developments, and industrial centers are also served by this interstate system. Transportation demands due to population shifts, employment growth, and regional development have already impaired operational and safety characteristics at the confluence of 1-75 and 1-475 (known locally as the systems interchange or the "Jeep Split"), the surrounding freeway segments, and adjacent interchanges. In this area, local service interchanges are intertwined with an interstate to interstate system interchange, which has compromised the through movement of people and goods along these two interstate routes. Projections developed in conjunction with the Toledo Metropolitan Area Council of Governments (TMACOG) and the Ohio Department of Transportation (ODOT) indicate a 29% increase in traffic within the systems interchange by the year 2030. This increase is anticipated to further exacerbate the system over the next several years. In addition, several geometric features of the systems interchange and the surrounding roadway network do not meet current design standards. Furthermore, the presence of multiple access points within a relatively small area has created complicated weave movements and lane discontinuity. These traffic and geometric factors have contributed to accident rates that exceed the statewide average for similar facilities. To mitigate these issues, the following goals must be met:

Improve traffic flow and level of service Improve safety and decrease the accident rate throughout the corridor Update geometric features to meet current design standards

In 1972, the expressway system in the Toledo metropolitan area was completed. This system of interstates, highways, and urban streets has facilitated the movement of people and goods through the Toledo area for residential, commercial, and industrial needs. As a result, these sectors have continued to grow since the 1970's. In fact, a study of Freight Impacts on Ohio's Roadway System (2002) indicates that 1-75 in Lucas County is one of the top ten corridors in the state in terms of freight-truck vehicle miles of travel.

In general, transportation improvements within the systems interchange and surrounding roadways have not kept pace with regional growth. When it was constructed, the design year

Ohio, Inc. Conceptual Alternatives Study Page 1

+ (1975) average daily traffic (ADT) for the one lane ramps from 1-75s to I-475W and from I- 475E to I-75N was 9,000 vehicles per day. In 2002, about 28,000 vehicles traveled these ramps each day. That volume represents a 210-percent increase over the design year traffic. Likewise, existing and projected traffic volumes in the systems interchange have exceeded the design year (1 975) peak hour volumes. However, there have not been any major capacity improvements to the systems interchange since it was constructed.

In response to these issues, the Toledo Metropolitan Area Council of Governments (TMACOG) conducted an Expressway Needs Study Phase 2A: Major Investment Study (MIS). This study was developed to provide a planning tool to define transportation needs in the region, develop alternative solutions, and to identify improvement strategies. Phase 2A of the Expressway Needs Study was led by a Scoping Committee. During the course of the study, TMACOG sponsored stakeholder meetings that included the Toledo Trucking Association, Ohio Contractors Association, taxi owners and operators, concrete truck drivers, emergency response personnel, the Toledo-Lucas County Port Authority, the Daimler- Chrysler Jeep plant, the Toledo Hospital, and the University of Toledo. Interviews with the Lucas County sheriff, the Wood County sheriff, and the state police were also conducted. Finally, three public meetings were held to educate area residents, businesses, property owners, civic leaders, and public officials about the MIS and to solicit feedback regarding alternative solutions.

The MIS identified eight expressway corridors for analysis. The 1-7511-475 corridor was one - of these areas and was the highest ranked corridor in terms of transportation needs. The MIS

I evaluated potential policies, programs, and projects to address the identified needs for the I- 7511-475 corridor. Conceptual solutions included travel demand management (TDM) strategies; transportation systems management (TSM) tools; high occupancy vehicle (HOV) provisions; public transit improvements; and expressway improvement alternatives. The MIS found that TDM, TSM, HOV, and transit options were limited in their ability to substantially increase the capacity of the overall system and could not adequately address the transportation needs of the area. Expressway improvement options, however, would help to eliminate design deficiencies, reduce traffic congestion, improve level of service, and enhance safety on the expressway. Therefore, the MIS concluded that highway improvement solutions would be the optimal strategy for addressing transportation needs along 1-75 and I- 475. The systems interchange was recommended as a high priority for highway improvements due to the extent of need and the anticipated benefits relative to required capital expenditures.

As a result of TMACOG's recommendations in the MIS, ODOT began efforts to complete an Interchange Modification Study to address the transportation needs for the systems interchange. However, as the study progressed, it became evident that more detailed environmental and engineering study were required to identify and evaluate alternative improvements. Therefore, the scope was revised to include the first eight steps of ODOT's 14-step project development process. The current scope includes determining a preferred alternative for improving the systems interchange that is consistent with identified needs. It will culminate in the preparation of an access modification study, National Environmental

f t Policy Act (NEPA) document, and stage 1 engineering plans. i


B. Project Study Area

The study area includes one major interstate route (I-75), one interstate beltway (I-475), one US route (US 24), and a collective of primary and secondary arterials which make up the downtown Toledo road network.

The limits of the project are described below (see Figure 1):

Beginning from the west along 1-475, 1,000 feet west of the Douglas Road bridge over 1-475, thence east to the systems interchange.

Beginning from the south along 1-75 at the Detroit Avenue Interchange (Delaware Avenue bridge and CSX railroad over 1-75 not included), thence north to the systems interchange.

Beginning from the east along 1-75, 1,100 feet east of the Lagrange Street bridge over 1-75, thence west to the systems interchange.

Figure 1: Project Study Area

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II. Environmental Issues

The following sections include a preliminary determination on whether the following resources will be affected by the alternatives under consideration:

Cultural Resources

Section 4(f) Resources

Ecological Resources

Hazardous Materials

Environmental Justice

For a graphical representation of the environmental impacts discussed in the following sections, please see the Conceptual Alternatives Map (Appendix C) and the Conceptual Alternatives Matrix (page 23).

A. Cultural Resource Issues

A literature review conducted for the project area did not identify any known archaeological sites in or adjacent to the study area. The likelihood of identifying prehistoric archaeological sites is low because of the extensive ground disturbing activities associated with the dense urban development that has occurred in the study area. Likewise, the construction of 1-75 and 1-475 reduces the likelihood of locating prehistoric archaeological sites in the Ottawa River floodplain. Historic archaeological resources are likely to be identified, primarily on vacant lots in the study area. No historic bridges are predicted to be impacted by any of the conceptual alternatives.

A literature review conducted for the project area identified eight previously inventoried historical/architectural resources in or adjacent to the study area. Three of these properties are listed in the National Register of Historic Places (NRHP). In addition, four additional properties have been identified as potentially eligible for the NRHP. These properties are summarized below:

Woodlawn Cemetery, which is listed on the NRHP, could be impacted by the reconstruction of Central Avenue in conjunction with Alternatives B, C and D. However, this resource can likely be avoided during the detailed engineering stage.

The Old West End Historic District - which is roughly bordered by Detroit Avenue in the north, Collingwood Avenue in the east, Lincoln Avenue in the south, and Maplewood Avenue in the west - is listed on the NRHP. The Historic District is located adjacent to the study area, and no impacts are anticipated for any of the alternatives under consideration.

The St. Ann Roman Catholic Church Complex, which is listed on the NRHP, is located adjacent to the study area at the DetroitfBancroft intersection. No impacts to the church complex are anticipated for any of the alternatives under consideration. (The St. Ann Roman Catholic Church Complex is not shown on the Conceptual Alternatives Map, because it is located south of the mapping limits.)


Collingwood Cemetery may be eligible for the NRHP. This cemetery would be impacted by the construction of a westbound 1-75 exit ramp to Berdan Avenue in conjunction with Alternative B.

The Henry A. Page Stadium at DeVilbiss High School may be eligible for the NRHP. This facility will likely be impacted by Alternative D due to the construction of the westbound 1-475 ramps and C-D Rd to Douglas Avenue.

An apartment building located on the southwest quadrant of the Berdan Avenue/Lockwood Avenue intersection may be eligible for the NRHP. This property could be impacted if Berdan Avenue is rebuilt in conjunction with Alternative B.

Foundation Stone Christian Center is a church that is located at 2902 Auburn Avenue and may be eligible for the NRHP. The church's access drives and parking areas could be impacted by all of the alternatives under consideration due to the reconstruction of the Auburn Road Bridge over 1-475.

Coordination with the State Historic Preservation Office (SHPO) will be required for work involving the historic properties listed above.

B. Section 4(f) Issues

No nature preserves or wildlife areas are predicted to be impacted by the alternatives under consideration. Several park and/or public recreational facilities may be impacted by the conceptual alternatives. These facilities are summarized below:

North Cove Park is a planned recreational facility that will be constructed on land currently owned by the City of Toledo in conjunction with the remediation of the North Cove Landfill. This facility could be impacted by the construction of an access road between Willys Parkway and Berdan Avenue in conjunction with 1-75 Alternatives C and D.

Willys Park could be impacted by the construction of an access road between Willys Parkway and Central Avenue in conjunction with 1-75 Alternative C and D.

A City of Toledo park was divided into a northern and southern parcel when 1-475 was originally constructed. Both parcels are maintained by the City Department of Parks, Recreation, and Forestry and are used for recreational purposes. This park could be impacted by Alternatives B and D.

Land that is owned by the Toledo Board of Education is located adjacent to the northern City of Toledo Park. This land is utilized for recreational purposes and could be impacted by Alternatives B and D.

Jermain Park is located west of Auburn Avenue and south of 1-475. This land is maintained by the City Department of Parks, Recreation, and Forestry and is used for recreational purposes. Utility relocation requirements may be necessary and could impact this facility in all alternatives.

Beatty Park is located east of Auburn Avenue and north and south of 1-475. This land is maintained by the City Department of Parks, Recreation, and Forestry and is used


for recreational purposes. This facility could be impacted by the reconstruction of the Auburn Ave Bridge in all alternatives.

Several historic sites may also be impacted by the proposed project. For a detailed description of these sites and the potential impacts, see the Cultural Resource Reports and Phase I HistorylArchitecture Survey Maps in Appendix D. Section 4(f) coordination will be required for impacts to any sites listed in or eligible for the NRHP.

It is likely that a programmatic Section 4(f) evaluation and/or an individual Section 4(f) evaluation will be required for the proposed project.

C. Ecological Issues

Wetlands and Scenic Rivers

No scenic rivers are located within the project area. Approximately 0.576 acre of non- isolated jurisdictional wetlands are located within the project area. These wetlands were assigned a modified Category 2 rating according to the Ohio Rapid Assessment Method (ORAM), which indicates low to moderate quality. The wetlands will likely be affected by all of the conceptual alternatives, as shown in Table C-1.

Table C-1: Wetland Imlacts

The Ottawa River is located within the project area. The Qualitative Habitat Evaluation Index (QHEI) score for this river ranged from 33.5 to 41. Several existing bridges currently span this waterway, and several new bridges are proposed for Alternatives B, C, and D. Three unnamed tributaries are also located within the project area. Unnamed tributary 3, which is categorized as Modified Class I1 according to the Headwater Habitat Evaluation Index (HHEI), will likely be impacted by all of the alternatives under consideration. Total stream impacts are summarized in Table C-2.

Alternative

B C D

Table C-2: Total meam Imlacts

Wetland Impact Area

Ecological impacts will be coordinated with the Ohio Department of Natural Resources (ODNR) and the U.S. Fish and Wildlife Service (USFWS). If it appears that an individual 4041401 permit will be required, then wetland and stream impacts will also be coordinated

1-75 .079 acre .561 acre .561 acre

Alternative

B C D


1-475 0.043 acre 0.043 acre 0.043 acre

Total Stream Impacts 1-75

320 feet 1,250 feet 1,250 feet

1-475 200 feet 200 feet 200 feet

with the U.S. Army Corps of Engineers (USACE) and the Ohio Environmental Protection Agency (OEPA). Any unavoidable ecological impacts will be mitigated as required by state and federal law.

Rare, Threatened, and Endangered Species Terrestrial Environments

The Ohio DNR DNAP Natural Heritage Data Services supplied information from their database on known rare, threatened, and endangered plants and animals within the study area. This report is included in Appendix G in the Level Two Ecological Survey Report. No rare, threatened, or endangered species were identified as using this area, nor were any noted during the course of this investigation.

Six federally listed species (listed below) are known to range over Lucas County. None of these species were observed in the study area.

> Charadrius melodus (piping plover, federally endangered) 9 Haliaeetus leucocephalus (bald eagle, federally threatened) > Lycaeides melissa samuelis (Karner blue butterfly, federally endangered) > Mytosis sodalis (Indiana bat, federally endangered) P Platanthera leucophaea (eastern prairie fringed orchid, threatened) 9 Sistrurus catenatus (eastern massasauga, federal candidate species)

The piping plover (Charadrius melodus) is a small, melodic, pale-covered North American shorebird. The bird's light sand-colored plumage blends in with the sandy beaches and shorelines, which are its primary habitat (Department of the Interior, U.S. Fish and Wildlife Service, 2000). The Great Lakes beaches are one of three main regions in which they breed. They favor open sand, gravel or cobble beaches and are known to inhabit Metzger Marsh Wildlife Area, on the shore of Lake Erie, approximately 13 miles east of Toledo. Nesting in the Great Lakes Region begins in early to mid-May and they will spend approximately three to four months at their breeding grounds. Piping plovers are easily disturbed by humans, and given the level of urbanization surrounding the project study area; it is unlikely to be inhabited by these endangered birds.

The federally threatened Bald Eagle (Haliaeetus leucocephalus) are highly conspicuous birds with specific and well-documented habitat requirements. They prefer quiet coastal area, rivers, or lakeshores with large, tall trees. Their nests are often large, measuring six feet across and weighing hundreds of pounds. None of these raptors or their nests was observed during the study. If any bald eagles nested or frequented the study area, there would likely have been documented records from DNAP's database. The nearest known bald eagle nesting site is two miles east of the 1-7511-475 interchange at the Coast Guard station on the Maumee River (Mark Shieldcastle, ODNR, personal communication, November 10,2003).

Karner blue butterflies (Lycaeides melissa samuelis) live in open, sunny ecosystems such as oak savannas and pine barrens. These conditions provide the perfect habitat for Lupinus perennis (wild lupines), upon which the endangered Karner blue butterflies depend. The

f adult butterflies feed on nectar from a variety of other wildflowers such as butterfly weed and .A

bachelors buttons. However, wild lupine is the only plant the caterpillar can successfully feed


on and is therefore critical to its survival. Historically, wildfires and large grazing animals would maintain these distinctive ecosystems-keeping these areas open and grassy. Today, however, wildfires are practically non-existent in this region and most of these unique habitats have disappeared from Ohio. Without fires and large animals freely grazing, trees shade out and eliminate the grasses and herbaceous plants, like the wild lupine (Department of the Interior, U.S. Fish and Wildlife Service, 1996).

The known range of the federally endangered Indiana bat (Myotis sodalis) covers all of Ohio. Unlike bald eagles, this species is nocturnal, inconspicuous, and extremely difficult to identie (Kurta, et al., 1993). Indiana bat is a migratory hibernator and caves are the exclusive winter habitat or hibernacula for this species. Presently, the only known hibernacula in Ohio are in Preble County and Wayne National Forest. No known trees suitable for Indiana bat maternity roost were found in the project area.

Once found in abundance in prairies across the Midwest, New England, and New Jersey, the federally threatened eastern prairie fringed orchid (Platanthera leucophaea) numbers have been reduced to a few scattered pockets in Illinois, Iowa, Michigan, Ohio, Virginia, Maine, and Wisconsin (Department of the Interior, U.S. Fish and Wildlife Service, 1998). This showy, fragrant, white orchid emerges in May, and begins flowering in June. The Eastern prairie fringed orchid is a plant of open bogs, moist, grassy plains and sedge meadows, requiring direct sunlight for growth. Drainage and utilization of native prairies for cropland has destroyed most of the original populations. Fire suppression, overgrazing, competition with introduced alien plants, and habitat fragmentation have also contributed to the decline of this species. This habitat-sensitive species is unlikely a resident of the study area, given its high level of urbanization. As described, this orchid requires moist, prairie-like conditions to survive. The lands within the study boundaries do not support such areas.

Eastern massasauga (Sistrurus catenatus) are candidates for federal listing. These small, reclusive snakes live in damp areas including wet prairies, marshes and low areas along rivers and lakes. They have also been known to use adjacent uplands during part of the year. Often hibernating in crayfish burrows, these reclusive reptiles may also be found under logs and tree roots or in small mammal burrows. There is little habitat potential for the eastern massasauga in the confines of the study area. The urbanization of the region has eliminated the secluded environment necessary for their survival.

There are no known rare, threatened, or endangered species currently inhabiting the study area and no impacts to such species are anticipated as a result of this project.

Terrestrial Environments

The vast majority of the study area is developed, with mowed strips along the interstates. Only small remnant successional woods and old-field habitats occur within the study area. They make up the narrow strips along high right-of-ways and a very narrow band along the Ottawa River. Impacts to forested areas will be minimal for this project. The trees found in these areas are fast growing and characteristic of urban, disturbed areas. These communities will quickly regenerate along the margins of the Ottawa River and new roadway.


Many resident wildlife species are considered common and are able to tolerate human activities nearby. However, segments of wildlife populations may be disturbed by the noise and increased activity at the site, especially during the construction phase. Those species affected might include resident birds and the more secretive mammals. Assuming neighboring habitats are already at carrying capacity; wildlife displaced from the proposed right-of-way is expected to be lost through competition for food, cover, and breeding territory in adjoining areas. The proposed construction will moderately impact the local mammal populations. The amount of cover available to the mammals may decrease slightly. Most of the surveyed mammal species are generally able to adapt to nearby human activity. However, further alteration of habitat decreases the available food and cover essential to the mammalian fauna. Construction will impact local reptile and amphibian populations. The reptile and amphibian species present here are tolerant of urban conditions. The loss of small amounts of habitat will not be significant. Large amounts of similar, semi-natural habitat exist throughout the general area.

Alignments for Alternatives C and D vary in some ramp and interchange locations, but because the majority of the study area is already developed, overall woodland/terrestrial impacts for Alternative C and D total the same acreage (Table 1). Alignment B differs from C and D in that there will be no impacts at Willys Parkway, Phillips Avenue, or Windermere Boulevard, with greater impacts occurring at Berdan Avenue with the new ramp and grading.

Table 1. Estimated Terrestrial Impacts


Roadway

1-475 Westbound

1-475 Eastbound

17.10 6.75 9.22 9.22

Total Acreage

1.39

Reasons for Impact

ramp (Alt D)/ grading

Affected Terrestrial Acreage Alternative

B Alternative

D 1-75 1-75

Alternative C

I- 475

1.22

1-475

1.22

1-75 1-475

1.22

D. Hazardous Materials Issues

The North Cove Landfill is located along 1-75 between Willys Parkway and Berdan Avenue. This facility is no longer in use, and 1-75 was originally constructed over a large portion of it. However, remnants of the former landfill are located north and south of the highway (see the Conceptual Alternatives Map in Appendix C). All of the conceptual alternatives consideration will impact the landfill area.

Evidence of possible hazardous material contamination has been noted on twenty parcels that will be impacted by one or more of the alternatives under consideration. Phase I ESA has been conducted on these properties, which are listed in Table D-1 and shown on the Conceptual Alternatives Map in Appendix C. Please see the Phase I Report for more information. In addition, signs warning of water pollution are posted along the Ottawa River. Therefore, it may be necessary to sample the river in the vicinity of the proposed work.

Table 0-1: Parcels Recommended for Plrase I Environmental Site Assessment

--

Ohio, Inc. Conceptual Alternatives Study

Map ID

1

2 3

4

5

6

7

8

9

10

11

12

13

14

15

16

Page 10

Anticipated Impacts

B' C, D

Alt. 1-75 B Alt. 1-75 B

C' D

C' D

Alt. 1-75 B

Alt. 1-75 B

Alt. 1-75 B

Alt. 1-75 B, C, D

Alt. 1-75 B

Alt. 1-75 B, C, D

'' C, D

Alt. 1-75 C, D

Alt. 1-75 B

Alt. 1-75 C, D

Business Name or Property Owner

Throne Auto Service, Inc.

Bob Hogg Collision Garms, Inc.

Lay Transmission Co.

Kenneth J. Lay, Sr.

Muffler King Co. Arthur and Kab

Real Estate Partners

Bruce and Teresa Grear

Lucas County Commissioner

Jeep Corporation, Wilco Properties

Pexco Packaging Corp.

City of Toledo

~ennsylvania ~ i n e s , LLC

City of Toledo

BDM Properties

M & L Leasing

Address

3266 Upton Ave.

9 14 Berdan Ave. 38 1 1 Baltimore St.

378 Phillips Ave.

394 Phillips Ave.

3432 Collingwood Blvd.

3425 Collingwood Blvd.

754 Berdan

76 1 Berdan Ave.

1000 Jeep Pkwy.

795 Berdan Ave.

3721 Lockwood Ave.

N/ A

1375 Hillcrest Ave.

3823 Haverhill Dr.

399 Phillips Ave.

Land Use

Auto Service Garage

Auto Senrice Garage Former Gas Station

Auto Senrice Garage

Full Service Station

Auto Service Garage

Auto Service Garage

Commercial ManufacturinglProcessing

County Services Building

Industrial

Commercial ManufacturingfProcessing

Former Landfill

Rail Linemail Spur

Former Landfill

Former Filling Station and Dry Cleaners

Former S tee1 Press1 Metal Waste

Note: Map ID number references the Conceptual Alternatives Map in Appendix C.

17

18

19

20

E. Environmental Justice Issues

According to guidelines established by the Department of Health and Human Service, there are no low income populations located within the study area.

B' C, D

" D

*lt+ B' C, D

Alt. 1-75 B, C, D

The City of Toledo has a minority population of 95,275 or 30.38% of its total population. There are a number of areas that exceed the regional average for minority populations that will be impacted by the conceptual alternatives, as shown in Table E-1. Inclusive public involvement in these areas will be planned to identify and assess disproportionately high and adverse human health or environmental effects.

Table E-1: lmmaets to Minority Pomulation Areas

Throne Auto Service, Inc.

Gudelman Feiga, TR

Former Babcock Dairy

Darkinson Doors


1902 Georgia Ave.

1 146 W. Central Ave.

945 Berdan Ave.

800 Berdan Ave.

Alternative

B C D

Former Filling Station

Steel Oil Tanks

Manufacturing

Manufacturing

Impacts to Mint pulation Areas (30.38% of total tio on or higher) 1-75

Total Impact Area

3.30 acres 0.00 acre 0.00 acre

1-475 Number of Total Takes

37 0 0

Total Impact Area

4.00 acres 6.70 acres 6.99 acres

Number of Total Takes

26 5 2 54

Ill. Public Involvement Summarv

The public involvement for the 1-7511-475 Interchange Improvement is organized under a structure that incorporates a steering committee and task force. The steering committee is comprised of individuals responsible for the outcome of the study and industry leaders representing transportation interests in the Toledo area. The purpose of the steering committee is to:

Offer qualitative observations regarding problems and needs

React to proposals and conceptual solutions

Work together to gain broad support for a preferred alternative

The task force includes all of the members of the steering committee and additional key stakeholders. The purpose of the task force is to assist ODOT and the Steering Committee in identifying project needs and alternative solutions. They also act as a point of contact for the broader public and represent their interests at the task force meetings.

In addition to steering committee and task force meetings, general public meetings, a website, and newsletters were utilized to provide information to and solicit feedback from the public. The following sections describe these activities in greater detail.

f A. Steering Committee

The following organizations are represented on the steering committee formed for the 1-7511- 475 Interchange Improvement Project:

The Ohio Department of Transportation The Toledo-Lucas County Port Authority The City of Toledo Administration Toledo City Council The Toledo Metropolitan Area Council of Governments Lucas County Toledo Hospital The University of Toledo The Ottawa Coalition

To date, six steering committee meetings have been held for the project. The first meeting was held on June 6,2002, and the most recent meeting was held on February 24,2003. The primary purpose for these meetings was to present engineering and environmental data; obtain input about problems, needs, goals, and objectives; present alternatives; obtain input on alternatives; and prepare for task force and public meetings. Agendas, handouts, minutes, and attendance lists for the steering committee meetings are included in Appendix F.


B. Task Force

The members of the task force for the 1-7511-475 Interchange Improvement Project were selected by ODOT based on the following relationships: ownership, legal responsibility, property impacts, major users (businesses dependent on the system), minor users (citizens and residents), and pedestrian/surface street users. The following organizations are represented on the task force:

Ability Center Colony Neighborhood North Blockwatch City of Toledo Public Schools; City Council; Development Department; Parks, Recreation & Forestry; Neighborhoods; Utilities; Engineering Services; and Transportation Daimler-Chrysler Jeep Eleanor Kahle Senior Center Federal Highway Administration Five Points Association, Inc. HNTB Ohio, Inc. Hogg Collision, LLC Kenwood-Sheridan Association Lucas County McKinley Elementary School Nagle Companies (Toledo Trucking Association) Neighborhoods in Partnershipfold West End Association Ohio Department of Transportation Ottawa Coalition Ottawa Community Development Corporation Promedica Regional Growth Partnership Representative Kaptur's Office Shrader Tire & Oil TAGNO TARTA The University of Toledo Toledo Area Chamber of Commerce Toledo Celtics Soccer Club Toledo Central City Neighborhood Community Development Toledo City Council Toledo-Lucas County Plan Commissions Toledo-Lucas County Port Authority Toledo Metropolitan Area Council of Governments (TMACOG)

To date, four task force meetings have been held for the project. The first meeting was held on June 13, 2002, and the most recent meeting was held on March 18, 2003. The primary purpose for these meetings was to present engineering and environmental data; obtain input

f about problems, needs, goals, and objectives; present alternatives; and obtain input on

- - - - - - -


alternatives. Agendas, handouts, minutes, and attendance lists for the task force meetings are included in Appendix G.

C. Public Meetings

Two public meetings were held for the 1-7511-475 Interchange Improvement Project. They are described in the following paragraphs.

Public Meeting #1

The first public meeting was held on Thursday, July 25, 2002 at the Blessed Sacrament Community Center. The purpose of the meeting was two-fold: to introduce ODOT's study of the 1-7511-475 interchange and surrounding interstate ramps and to obtain input on potential improvements. Meeting notices were provided to the Steering Committee and Task Force members, who circulated them to their respective constituencies. In addition, flyers advertising the meeting were distributed throughout the project area. Copies of advertising materials are included in Appendix H.

The first public meeting began with a formal presentation by ODOT and HNTB. Topics addressed during this portion of the meeting included: the study area; project schedule; tasks completed to date; the steering committee and task force; goals and objectives; problems and needs; and existing conditions. A copy of the presentation utilized during this portion of the meeting is included in Appendix H.

Following the formal presentation, attendees broke into work groups of about nine people each. Each work group was led by a facilitator from ODOT, HNTB, or TMACOG and asked to brainstorm about possible solutions to the identified problems. During these brainstorming sessions, attendees were encouraged to sketch their ideas on large aerial photographs of the study area. The results of these work sessions were compiled and utilized in developing the conceptual alternatives presented in this document. A summary of the comments generated during the work sessions is included in Appendix H.

In all, 66 individuals attended the first public meeting. Copies of the attendance list and handouts distributed at the meeting are also included in Appendix H.

Public Meeting #2

The second public meeting was held on Thursday, December 12,2002 at Blessed Sacrament Community Center. The purpose of this meeting was to present and gather input about preliminary conceptual alternatives. Once again, meeting notices were provided to the Steering Committee and Task Force members, who circulated them to their respective constituencies. In addition, flyers advertising the meeting were distributed throughout the project area and mailed to 68 individuals. Copies of advertising materials are included in Appendix H.

d The second public meeting also began with a formal presentation by Richard Martinko, . ODOT District 2 Deputy Director. Topics addressed during this portion of the meeting


included: project overview; project schedule; public involvement plan; goals and objectives; problems and needs; existing conditions; and current design guidelines. Copies of the presentation and handouts utilized during this portion of the meeting are included in Appendix H.

Following the formal presentation, attendees broke into work groups to study the preliminary alternatives and offer comments. Based on the comments generated during this portion of the meeting, it was determined that two of the preliminary conceptual alternatives (the No- Build Alternative and Preliminary Conceptual Alternative A) did not meet the project purpose and need andlor resulted in unacceptable impacts. As a result, these alternatives were eliminated from further study. Based on feedback received at the meeting, a new alternative (Alternative D) was also added. The alternatives that remained following the second public meeting are the subject of this report.

D. Website

A project website (www.improvinavourride.com) was created to make the most current project information accessible to the general public. This website describes the study goals as well as information pertaining to the study area, process and various aspects of public involvement. Alignments for the conceptual alternatives are available for viewing and can also be downloaded from the site. The website also provides individuals the opportunity to submit comments via e-mail. Contents of the project website are included in Appendix I.

C E. Project Newsletters

To date, two project newsletters have been published to provide another method of informing and involving the general public. Copies of these newsletters are included in Appendix J.

The first newsletter was released in the Summer of 2002. The intent of this newsletter was to provide an update regarding the project process. The newsletter contained features on the following subjects: project schedule; the steering committee and task force; and the first public meeting.

The second newsletter was released in the Spring of 2003. This newsletter provided an update on the study, presented the preliminary conceptual alternatives, and summarized the second public meeting. It also described a new alternative (Alternative D) that was created as a result of comments generated at the second public meeting. The second newsletter also provided an explanation of ODOT's new 14-Step Project Development Process (PDP) as it pertains to the 1-7511-475 Interchange Improvement Project.

F. Public Comments & Actions Taken

Throughout the course of the project, public comments were collected at public meetings, via the project website and through mail-in comment forms. Copies of the comments received

f are included in Appendix K and highlighted below.


Consider relocating houses displaced by new ramps to areas where other ramps will be removed (Relocation of homes to vacated right-of-way areas is notpossible)

Reconfiguration plans should be sensitive to the fact that this area was originally parkland (This comment will be addressed in the environmental process during selection of the preferred alternative)

Consider an extension of the Ottawa Park bike trail in excess right-of-way (It is unlikely that vacated right-of-way areas will be suitable for extension of a bike path)

Consider concerns regarding access to Upton and Jackman north of 1-75 (A connector was added to the 1-475 Alternative D that addresses this comment)

Consider concerns regarding access north of 1-475 (Same as above)

Provide better signs and new lane markings to eliminate confusion at merges near the Jeep plant (This interchange will be reconmred and new signing will be constructed throughout the project)

Add an arrow to the sign for the 1-280 (This will be considered during Stage I design of traflc control)

Add a road that runs from 1-75 over to 1-280, giving drivers the choice of running east of Toledo from the area north of Bowling Green (This comment is beyond the scope of this project)

Consider eliminating the left-side splitlmerge on NB 1-75 (This is being accomplished in all alternatives)

Consider tying 1-75 to SR-480 in Wood County to alleviate traffic congestions in the downtown area (This is beyond the scope of this project and was addressed in the Expressway needs Study Phase 2A: MIS)

Do not eliminate the Berdan interchange, because it will affect access to and from the Five Points Association neighborhood (The Berdan interchange is included in Alternative 1-75 B and will be evaluated with other alternatives)

The Toledo Blade has published five articles regarding this project and its potential impacts. The full text of these articles is also included in Appendix K.


IV. Alternative Comparison

Five preliminary conceptual alternatives were developed to address traffic safety and congestion problems within the 1-7511-475 project corridor. Two of these alternatives were subsequently eliminated from further study, and three are recommended for further development. These alternatives are discussed in more detail in the sections that follow.

A. Preliminary Conceptual Alternatives

Two of the five preliminary conceptual alternatives were eliminated fiom further study, because they did not address all of the elements of the project purpose and need. The alternatives eliminated fiom further study are described below:

The No-Build Alternative

The majority of the freeway elements in the 1-7511-475 systems interchange area currently operate below acceptable levels. The No-Build Alternative will not improve traffic flow or levels of service, because neither capacity nor demand along the freeway will be altered. Because congestion will not be alleviated, and geometric improvements will not be constructed, the No-Build Alternative also will not improve safety or decrease the accident rate throughout the corridor. In addition, substandard geometric features such as interchange spacing, partial service interchanges, lane discontinuity and left-ordoff ramps will not be improved. Finally, comments received during early public involvement indicated that the No- Build Alternative was not an acceptable solution to the project stakeholders. Because it did not satisfy any of the elements of the project purpose and need and was met with strong public opposition, the No-Build Alternative was eliminated from fbrther study.

Preliminarv Conceptual Alternative A

During early studies of the corridor, an alternative that eliminated all interchanges except the systems interchange was evaluated. The interchanges to be eliminated included: the Detroit Avenue interchange to the south, the Phillips Avenue interchange to the east, the Willys interchange to the north, and the Douglas Road, partial interchange to the west. Alternative A was found to meet all of the elements of the project purpose and need. However, the impacts to the adjacent local street network were found to be severe due to the substantial increases in traffic caused by the lack of access points for 1-75 and 1-475. The transfer of traffic from the freeway system to the local street network would cause significant traffic safety and congestion issues. It would also detrimentally effect access to local schools, the hospital, and the Daimler-Chrysler manufacturing plant located near the "Jeep Split." Furthermore, the majority of these impacts would be concentrated in minority population areas. Finally, comments received during early public involvement also indicated that Alternative A was not an acceptable solution to the project stakeholders. Given the magnitude of the secondary impacts and the strong public opposition, Alternative A was eliminated from further study.


The remaining three preliminary conceptual alternatives have been evaluated for compliance with the purpose and need for this project. These alternatives meet all of the elements of the project purpose and need and have been considered acceptable solutions by the public. Further analysis of these three alternatives is discussed in the following sections of the Conceptual Alternative Study.

9. Recommendations for Further Alternative Development

Based on the information contained in this report and summarized in the Alternative Summary Matrix (page 23), all three alternatives appear to be reasonable solutions that meet the elements of the project purpose and need. The comparison of benefits and costs associated with each alternative will be studied further during the preparation of the Assessment of Feasible Alternatives.

Design exceptions right-of-way impacts and planning level costs are summarized in the Conceptual Alternative Matrix. Pavement Evaluation and Geotechnical Subsurface Investigations can be viewed in the "Red Summary Report".

A discussion of the "pros" and "cons" of the three Conceptual Alternatives along each leg of the project is provided below.

Alternative BA-475 Leg

This alternative provides access at Oatis Avenue on 1-475 east and west with a tight diamond interchange and collector-distributor roads to Douglas Road. It also provides an additional lane on the 1-75s to I-475W ramp.

Pros

Provides good access to the hospital

Avoids removal of the Henry A. Page Stadium

Provides the longest weave distance from the nose of the 1-75 ramps that form I- 475W to the gore of the Oatis/Douglas exit ramp

Requires the least amount of residential relocations

Cons

Requires a southerly shift of the 1-475 mainline to avoid Henry A. Page Stadium, which increases construction cost

Requires relocation of several business and residential properties along the south and north sides of 1-475 to construct the collector-distributor roads

Requires several acres of public park right of way

Conceptual Alternatives Study Page 18

-.. Alternative C/I-475 Leq

This alternative provides access at Oatis Avenue and Upton Avenue on 1-475 east and west with tight diamond interchange. The Douglas Road partial interchange will remain. It also provides an additional lane on the 1-75s to I-475W ramp.

Pros


Provides good access to the DeVilbliss school complex

Avoids removal of the Henry A. Page Stadium

Requires minimal public park right of way

Estimated to be the least expensive 1-475 alternative

Cons

Requires a southerly shift of the 1-475 mainline to avoid Henry A. Page Stadium, which increases construction cost

Requires several residential relocations in minority population area along both sides of 1-475

Provides the shortest weave distance fkom the nose of the 1-75 ramps that form I- 475W to the gore of the Oatis Avenue exit ramp

Requires a weave along 1-475 between Oatis Avenue traffic and Douglas Road traffic

Alternative DO-475 Leg

This alternative provides access at Oatis Avenue on 1-475 east and west with tight diamond interchange and collector-distributor roads to Douglas Road and access to Upton Avenue from a new interchange. It also provides an additional lane on the 1-75s to I-475W ramp.

Pros


Provides good access to the DeVilbliss School complex

= Provides access to Upton Avenue

Cons

f Requires the most residential relocations of the 1-475 alternatives


Requires the removal of the Henry A. Page Stadium

Requires several acres of public park right of way

Estimated to be the most expensive 1-475 alternative

Alternative B/I-75 Leg

This alternative provides a full access interchange at Berdan Avenue. It also provides an additional lane on the I-475E to I-75N ramp.

Pros

Provides good access at Berdan Avenue tolfi-om 1-75

Provides more direct access tolfrom 1-475 from Daimler-Chrysler property

Results in the least impacts to ecological resources

Cons

- Does not provide direct access to the Jeep Plant tolfi-om 1-75

I Requires removal of the existing Phillips Road interchange

Requires the lowering of Berdan Avenue under railroad bridges to provide clearance for trucks in and out of Daimler-Chrysler property

Impacts several Phase I ESA properties in the area where Berdan would need to be lowered

Requires the reconstruction of the Haverhill/Phillips and BerdanlDetroitXheny intersections, which is minority population area and a potential historic district

Requires several business and residential relocations to construct the I-75N entrance ramp

Requires the relocation of Collingwood Cemetery (potentially eligible for the NRHP) to construct the 1-75s exit ramp to Berdan Avenue

Requires the most earthwork operations within the boundaries of the North Cove Landfill

Estimated to be the most expensive 1-75 alternative due to ROW acquisition costs

f-


Alternative C/I-75 I

Provides full 1-75 access at Willys Parkway and Phillips Avenue and access to I-475W from Willys Parkway. It also provides an additional lane on the I-475E to I-75N ramp.

Pros

Provides good access tolfrom 1-75 Willys Parkway and Daimler-Chrysler property

Retains existing access tolfrom Phillips Avenue

Provides access to I-475W from Willys Parkway and Daimler-Chrysler property

Minimizes earthmoving activity in the North Cove Landfill

Provides the shortest traffic route to 1-75 from Central Avenue businesses and the TARTA garage.

Requires no business or residential relocations

Cons

Does not provides access from I-475E at Willys Parkway and Daimler-Chrysler property

Requires minor ecological impacts to Ottawa River and wetland areas

Requires relocation of Jeep Pkwy through Daimler-Chrysler property

Alternative Dl 1-75 Leg

This alternative provides full access to 1-75 at Willys Parkway and Phillips Avenue. It also provides an additional lane on the I-475E to I-75N ramp.

Pros

Provides good access tolfrom 1-75 from Willys Pkwy and Daimler-Chrysler property

Retains existing acce: m Phillips Avenue

Minimizes earthmoving activity in the North Cove Landfill

Provides the shortest traffic route to 1-75 from Central Avenue businesses and the TA garage. TAR'

Requ A ires no business or residential relocations f

Cons

Ohio, In( Conceptual Alternatives Study Page 21

Requires minor ecological impacts to Ottawa River and wetland areas

Requires relocation of Jeep Parkway through Daimler-Chrysler property

Does not provide direct access to 1-475 from Willys Parkway or Daimler-Chrysler property

C. Maintenance of Traftic (MOT) Issues

All of the conceptual alternatives have been analyzed for maintenance of traffic (MOT) requirements and were found to be adequate to support the design criteria. The criteria used in the analysis follows:

Maintain a minimum of two lanes in each direction for 1-475 and 1-75 traffic

Close and detour all overpass roadways along 1-475 in a sequential manner to provide at least one crossing of 1-475 at all times

Close Central Avenue over the systems interchange and detour traffic to Detroit and Monroe

Construct new interchanges along 1-475 in a sequential manner to maintain all directional movements to/fi-om 1-475 utilizing new and existing ramps

Access to 1-75 from the Willys Pkwy and Daimler-Chrysler property will be maintained utilizing a combination of the existing Willys ramps and Berdan Avenue ramps

A comparison of the MOT requirements for each alternative was performed to determine if any extraordinary construction phasing or techniques would be required to meet the design criteria listed above. The results of this study are summarized below:

Alternative B/I-475 Leg

This alternative provides access at Oatis Avenue on 1-475 east and west with a tight diamond interchange and collector-distributor roads to Douglas Road. It also provides an additional lane on the 1-75s to I-475W ramp.

The new interchange will require sequential construction with the I-475W entrance ramp/collector-distributor road and the I-475E exit ramp/collector-distributor road constructed first to provide future access to 1-475 when the existing ramps are closed. The overpass structure will also require construction in the initial phase. The Douglas Road overpass will be closed during construction, and traffic will be detoured to Oatis and Upton.

Once traffic is rerouted to the new Oatis Avenue and interchange, the existing entrance ramps from Upton and the exit ramp at Oatis can be removed, and the eastern ramps and

F collector-distributor road of the new interchange can by constructed. The Douglas Road


access will remain closed until the interchange is complete. The Jackman Road exit ramp will be removed once the new interchange is complete.

Crossovers will be required along the 1-475 mainline to construct the bridges over Upton Avenue and Central Avenue.

Alternative CII-475 Leg

This alternative provides access at Oatis Avenue and Upton Avenue on 1-475 east and west with tight diamond interchange. The Douglas Road partial interchange will remain. It also provides an additional lane on the 1-75s to I-475W ramp.

The new interchange will require sequential construction with the I-475W entrance ramp and I-475E exit ramp constructed first to provide future access to 1-475 when the existing ramps are closed. The overpass structure will also require construction in the initial phase. the Douglas Road overpass will be closed during construction, but the entrance and exit ramps can remain in service.

Once traffic is rerouted to the new Oatis Avenue and interchange, the existing entrance ramps from Upton and the exit ramp at Oatis can be removed, and the eastern ramps of the new interchange can be constructed. The Jackman Road exit ramp will be removed once the new interchange is complete.

Crossovers will be required along the 1-475 mainline to construct the bridges over Upton I

Avenue and Central Avenue

Alternative D/I-475 Leg

This alternative provides access at Oatis Avenue on 1-475 east and west with tight diamond interchange and collector-distributor roads to Douglas Road and access to Upton Avenue from a new interchange. It also provides an additional lane on the 1-75s to I-475W ramp.

The new interchange will require sequential construction with the I-475W entrance ramp/collector-distributor road and the I-475E exit ramp/collector-distributor road constructed first to provide future access to 1-475 when the existing ramps are closed. The overpass structure will also require construction in the initial phase. The Douglas Road overpass will be closed during construction, and traffic will be detoured to Oatis and Upton. The exit ramp from I-475E to Oatis will also require closure with traffic detoured to the Monroe interchange to the west.

Once traffic is rerouted to the new Oatis Avenue and interchange, the existing entrance ramps from Upton can be removed, and the eastern ramps and collector-distributor road of the new interchange can be constructed. The Douglas Road access will remain closed until the interchange is complete. The Jackman Road exit ramp will be removed once the new interchange is complete.

1' Crossovers will be required along the 1-475 mainline to construct the bridges over Upton Avenue and Central Avenue.

2hi0, Inc Conceptual Alternatives Study Page 23

- Alternative B/I-75 Leg

This alternative provides a full access interchange at Berdan Avenue. It also provides an additional lane on the I-475E to I-75N ramp.

The new interchange at Berdan Avenue will be constructed first, and the existing interchanges at Willys and Phillips will remain in service. The existing Berdan interchange will require closure and detours during this initial phase of construction. This phase will also require the widening of the bridge over Berdan, railroads, Ottawa River, and Detroit.

Once the construction of the Berdan interchange is complete, the Willys and Phillips interchanges will be closed, and the widening of the remaining portions of 1-75 will be completed.

Alternative CII-75 Leg

Provides full 1-75 access at Willys Parkway and Phillips Avenue and access to I-475W from Willys Parkway. It also provides an additional lane on the I-475E to I-75N ramp.

The new alignment of 1-75s will be constructed first through the Willys interchange. This will require closure of the existing Willys interchange with detour routes tolfrom Berdan and Phillips.

- Temporary widening of the existing 1-75s bridge over the Ottawa River will be required to i construct the new 1-75s bridge over the Ottawa River due to their proximity to each other.

Once the new 1-75s lanes are constructed, traffic will be detoured to this alignment, and a temporary ramp to I-475W will be constructed. Reconstruction of the existing 1-75s lanes (future I-475W lanes) will then be completed, including the ramp from Willys to 1-75s.

The final phase of construction will include the closure of the Berdan interchange and the reconstruction of the Phillips interchange and 1-75 mainline along the northern portion of the project.

Alternative Dl 1-75 Leg

This alternative provides full access to 1-75 at Willys Parkway and Phillips Avenue. It also provides an additional lane on the I-475E to I-75N ramp.

The new alignment of 1-75s will be constructed first through the Willys interchange. This will require closure of the existing Willys interchange with detour routes tolfrom Berdan and Phillips.

Temporary widening of the existing 1-75s bridge over the Ottawa River will be required to construct the new 1-75s bridge over the Ottawa River due to their proximity to each other.

Ohio, In Conceptual Alternatives Study Page 24

Once the new 1-75s lanes are constructed, traffic will be detoured to this alignment, and a temporary ramp to I-475W will be constructed. Reconstruction of the existing 1-75s lanes (future I-475W lanes) will then be completed including the ramp from Willys to 1-75s.

The final phase of construction will include the closure of the Berdan interchange and the reconstruction of the Phillips interchange and 1-75 mainline along the northern portion of the project.


? DraA Feasible Alternatives Matrix

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Ohio, Inc. Conceptual Alternatives S b ~ d y

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