MEMORANDUM

TO: City Council

FROM: David J. Deutsch, City Manager

SUBJECT: US 301/MD 197 Interchange
Location/Design Public Hearing Recommendation

DATE: 1/2/03

On November 18, 2002 Council opened the public hearing for the Route 301/197 interchange, but, after hearing from several speakers, chose to continue the hearing to a date subsequent to the Maryland State Highway Administration's Location/Design Public Hearing on November 20, 2002. Three (3) individuals addressed the City Council at the November 18th hearing, including former Councilmembers Dick Padgett and Dale Grant (both members of the Route 301/197 interchange focus group) and the President of the Greater Bowie Chamber of Commerce Art Eisenstein. Mr. Padgett expressed two concerns: (1) that the project provide safe and efficient access to communities along Governor Bridge Road, and (2) that the interchange design in the Mill Branch Road area should not lead to unwanted land use changes east of Route 301. Mr. Grant and Mr. Eisenstein both made general comments and requested that the City Council withhold action on the proposal until after public comments presented at the SHA hearing could be considered.

Approximately 40 people attended the SHA hearing, including Councilmen Dennis Brady and Jack Jenkins. Seven individuals provided testimony, including Chris Hedman, Harry Cyphers (representing the American Discovery Trail and trail user groups), Bob Bunge, Dale Grant, Jeffrey Alexander (Covington HOA), Heidi Shamloo and Tom Terry. Most of the speakers did not express a preference for a specific alternate; however, Ms. Hedman and Mr. Cyphers supported Alternate #5B. The major concerns expressed by the speakers included:

· elevate the express lanes;
· include pedestrian and bicycle access that is integrated into the City's overall system and provides access to recreation areas east of US 301;
· identify transit corridors and how they are treated;
· use full cut-off light fixtures and minimize light trespass from interchange lighting;
· provide a ramp from eastbound US 50 to Mitchellville Road in every alternate;
· address the anticipated increase in noise and its impact on residential areas west of US 301;
· consider the impact of shopping center truck traffic using local streets as a result of the one-way service road concept; and
· design stormwater controls to reverse the current stream degradation and improve water quality.

The public record is open until January 15, 2003. Staff sent notices of the January 6, 2002 City Council hearing date to owners and occupants of property in the corridor and other interested parties. The City's notice also specified the deadline of the SHA open record period and who to contact for additional information. At Council's direction, a bulletin board display depicting the alternates was placed in the lobby at City Hall in late November. Two boxes of project information brochures were distributed to the public in conjunction with this display.

At their November Board meeting, the Greater Bowie Chamber of Commerce requested that City staff facilitate a question and answer session with SHA staff, similar to a recent meeting conducted for business owners in the Route 450 corridor. Due to the busy holiday shopping season, this briefing was scheduled for Monday, January 6, 2003 at 8:00 a.m. in the Council Chambers so business owners could attend. Staff will provide a summary of this meeting to you Monday night.

The staff report, including the Economic Study performed by SHA's consultant, was already provided to you in advance of the November 18th hearing. The related noise study was transmitted to you in December. The noise study concluded the following:

(1) Three (3) of the four (4) identified noise sensitive areas (NSAs) will experience no-build design year noise levels equal to or exceeding the Federal Highway Administration and State impact criteria. However, since the no-build alternative would not involve additional highway improvements or increasing existing capacity, noise abatement was not considered.

(2) Three (3) of the four (4) identified noise sensitive areas will experience build design year noise levels that equal or exceed impact criteria for each of the alternatives. Feasibility and reasonableness of noise abatement was then investigated for the build condition at NSAs 2, 3, and 4. Right-of-way constraints adjacent to US 301, MD 197 and Mitchellville Road preclude construction of earth berms for noise abatement. Therefore, sound barriers were evaluated for each impacted area, based on SHA's feasibility and reasonableness criteria as defined in the SHA Sound Barrier Policy (May, 1998). None of the locations qualify for sound barriers under the Sound Barrier Policy.

Recommendation

Staff considered information available subsequent to the November 18, 2002 City Council hearing, including the findings of the noise study and public testimony provided to date. Staff continues to recommend Council support for Alternate #5B for the reasons given in the November 14, 2002 staff report.

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MEMORANDUM

TO: City Council

FROM: David J. Deutsch, City Manager

SUBJECT: US 301/MD 197 Interchange
Location/Design Public Hearing Recommendation

DATE: 11/14/02

I. Introduction

The Maryland State Highway Administration (SHA) will be conducting a Location/Design Public Hearing for the US 301/MD197 interchange on Wednesday, November 20, 2002 at 7:00 p.m. in the Multi-Purpose Room at City Hall. At a worksession held on October 28, 2002 SHA staff presented an overview of the project alternates to City Council. The study area includes 1.5 miles of the Route 301 corridor, from Mount Oak Road to the US 50/US 301 interchange. MD 197, from US 301 to Mitchellville Road, is also included (see Attachment #1).

A focus group was established by SHA in 2000 to study interchange options. Representatives of the focus group included Councilman Dennis Brady, former Councilman Richard Padgett, former Councilman Dale Grant, Kathy Coakley, Jack Jones, Nick Bassford, Angel Lee, Maureen Earp-Wood and Lee Botts. After considering numerous design alternatives, the focus group narrowed the major options to three: (1) No Build; (2) Alternate #2; and (3) Alternate #5. Two variants of each of the Build Alternates have been retained for the Location/Design Public Hearing.

An interchange at US 301/MD 197 is shown on the approved 1991 Bowie-Collington-Mitchellville and Vicinity Area Master Plan and has been a City Council priority for funding, as noted in the City's position letters on the State Consolidated Transportation Program (CTP). The City mailed notices of this public hearing to over 300 residents, business owners and stakeholders. Although several individuals contacted the City with questions, no formal comments were received regarding this proposal.

II. Proposal

The background, purposes and alternates from this project planning study are summarized in the Location/Design Public Hearing Brochure (Attachment #2).

A. Similarities of Build Alternatives

There are five attributes common to all of the Build Alternates:

· Improved Operations on Mainline US 301 - through creation of a full access controlled roadway with three (3) through lanes;
· Separation of Local and Through Trips - is accomplished by introduction of service roads on both sides of the through lanes of US 301. Safety is enhanced by separating lower-speed local trips from higher-speed through trips.
· Diamond interchange design - where movement of traffic between US 301 and MD 197 would be managed by a single signalized intersection either directly above or beneath a new overpass structure. MD 197 is extended east of US 301 to connect to a realigned Stadium Drive;
· MD 197 widening - includes additional lanes at the intersection with Mitchellville Road;
· Elimination of existing intersections - including removal of three currently signalized intersections (in addition to the US 301/MD 197 intersection), the addition of an overpass connecting Harbour Way to Governor Bridge Road (extended) and an overpass connecting Excalibur Road to the east side service road. Mill Branch Road will intersect with the east side service road. Heritage Boulevard would end at a T-intersection with the new west side service road.

B. Need for the Project

Some of the key statistics cited in support of a Build Alternate include:

· A 45% increase in traffic on US 301 is expected between 2001-2020 (from 66,300 vehicles per day in 2001 to 96,100 vehicles per day in 2020);
· The heaviest traveled portion of the corridor, between MD 197 and Excalibur Road, is expected to experience a 53% increase between 2000-2020;
· MD 197, between US 301 and Mitchellville Road, would experience an increase in traffic of 89% between 2000-2020;
· The accident rate on US 301, between MD 197 and US 50, is almost triple that of the Statewide average for similar roadways.

III. Analysis

A. Traffic Operations

A critical factor in analyzing future traffic operations is the volume-to-capacity (V/C) ratio. Table 2 in the Public Hearing Brochure identifies the existing peak hour traffic levels-of-service (LOS) at the five major intersections in the study area and compares them to the 2020 projected traffic levels under the No Build Alternate. Clearly, the traffic operations would suffer a complete breakdown at all of the intersections in the study area, both during the a.m. and p.m. peak periods. It should also be noted that emergency response times in the study area are expected to improve as a result of implementation of any of the Build Alternates. Notwithstanding the economic justification (see below), staff concludes that a Build Alternate is preferable over the No Build scenario from a traffic operation standpoint.

Table 3 compares LOS and V/C ratios for the Build Alternates. The analysis includes intersections of the future service roads and ramps. All Build Alternates result in LOS "A" at all intersections in the a.m. peak hour. Therefore, the major differences between the Build Alternates are observed in the p.m. peak hour operating conditions (i.e. 4:00 p.m.- 5:00 p.m.).

Alternate #2 Modified has only two locations that approach failing LOS. The US 301/MD 197 intersection and west side service road at Excalibur Road both are projected to operate at LOS "D" with V/C ratios of 0.84 and 0.90, respectively, in the p.m. peak hour. Under Revised Alternate #2 Modified, only one location (the US 301/MD 197 ramp intersection) approaches a failing condition in the p.m. peak hour (V/C = 0.84). This alternate also provides the best LOS in the vicinity of Collington Plaza. In Alternate #5 (both options A & B), LOS is expected to be no worse than LOS "C". This occurs at four intersections in the p.m. peak hour.

Revised Alternate #2 Modified and Alternate #5 have similar LOS and V/C ratios, with the exception of several intersections of the west side service road in the vicinity of Collington Plaza and Excalibur Road, where Alternate #2 Modified is better. The poorer LOS in Alternate #5 is due to this alternate providing two-way traffic operations. However, this alternate also provides greater accessibility to businesses from US 301 via the west side service road. Revised Alternate #2 Modified does not contain a slip ramp from US 301, south of MD 197, so the higher traffic volumes seen in Alternate #2 Modified are missing from Revised Alternate #2 Modified.

Based on the above observations, staff finds that while Revised Alternate #2 Modified provides the best overall LOS, Alternate #5 provides a slightly better LOS and V/C ratio at the US 301/MD 197 interchange ramps. Since there is both a need for this major intersection associated with the diamond interchange to function as efficiently as possible and for an alternate that offers the best accessibility without compromising LOS, staff recommends Alternate #5 be supported from a traffic operations perspective.

The differences between Alternate #5A and Alternate #5B are minimal. Alternate #5A elevates MD 197 over US 301, while Alternate #5B places MD 197 under US 301. The raised elevation of US 301 in Alternate #5B allows for the southbound US 301 ramp to the west side service road to align directly opposite the eastbound MD 197 ramp to the service road. This direct alignment of the ramps is not possible under Alternate #5A because of engineering constraints related to the MD 197 overpass at the exit ramp location. At a maximum estimated cost of $265 million, Alternate #5B provides improved accessibility at less cost than Alternate #5A ($271 million). Staff supports Alternate #5B, due to the lower construction cost and the ability to align the referenced ramps more efficiently.

B. Accessibility to Existing Businesses and Overall Circulation

A copy of the economic analysis prepared by the SHA's consultant, McCormick-Taylor Economic Consultants, is attached as Attachment #3. According to the Public Hearing Brochure, the study area includes 88 businesses. Most are classified as retail (42%) or service businesses (34%). Table 1 in the Economic Study identifies each of these businesses. The Public Hearing Brochure makes the following statement regarding the project's impact on local businesses:

Based on an intensive study of potential business impacts of the proposed project, it is estimated that the reduced congestion levels and travel times associated with the build alternates would provide benefits to existing and future customers while encouraging additional future business investment in the study area.

This is perhaps the most compelling evidence resulting from the project planning study.

The study went well beyond the traditional analysis in determining the impacts of the interchange designs on the business community. It included both an analysis of the short term impacts as well as a long term assessment of the economic competitiveness of the study area. The SHA consultant considered factors most relevant to determine the vulnerability of businesses in the study area. The consultant found that, compared to the No Build Alternative, each of the Build Alternatives will increase the opportunity for new revenues at the study area businesses by increasing the market share of their market. The potential for new revenues is the result of greater numbers of trips that pass through the study area as compared to the No Build Alternative and reduced travel time to reach study area businesses. Table 8 in the study reveals the percentages of market share of retail, services and F.I.R.E. (finance, insurance and real estate) business all increase under the Build Alternates. In November, 2000 the consultant gathered information through a customer intercept survey and a business owner/manager survey. The results are contained in the Economic Study.

Although the Build Alternates eliminate direct access to Bowie Gateway Center, Collington Plaza and businesses on the east side of US 301, travel time to those locations still decreases in the Build scenario. However, the study notes that those businesses that primarily rely on convenience-oriented trips (e.g. fast food, gas stations), may be impacted the most. Additional trailblazer signs are recommended north of US 50 to ameliorate this issue. The customer survey performed as part of the economic analysis revealed that approximately 33% of customers using existing convenience-oriented businesses are "impulse" or part of a regional or interstate trip.

The survey also noted that, when deciding where to purchase their goods and services, customers preferred "ease of access" over an other variable screened in the survey. The study noted that the business area most susceptible to changes in access is the area on the east side of US 301 along Governor Bridge Road which includes several auto dealerships. Travel time to these businesses is increased due to the elimination of the Governor Bridge Road/Harbour Way intersection. Even though most of the trips to these dealerships are not the convenience-oriented type, directional signage is recommended to clearly show how to access these businesses.

Table 5 of the Economic Study identifies existing travel times in the study area and travel times for the 2020 No Build Alternate and each Build Alternate. The data reveal much improved travel times under the Build options and extremely poor travel times under the No Build option. Based on the above analysis, staff recommends support of a Build Alternate, provided that an appropriate number of trailblazer and directional signs is included, especially on MD 197, US 50 and US 301.

C. Pro's and Con's of Proposed Alternates

The following pro's and con's emerged based on information provided in Table 4 of the Public Hearing Brochure's "Summary of Impacts" and from staff observations.

(1) Alternate #1 No Build

Pro - major cost savings, preservation of four existing businesses, no environmental or farmland disruption.

Con - increased congestion and unacceptable delays. Possible loss of market attractiveness for local businesses.

(2) Alternate #2 Modified

Pro
- Least costly of all alternates.
- Displaces fewer businesses than Alternate #5.
- Disrupts less wetlands, forest and streams than Alternate #5.
- Disrupts less Soils of Statewide Importance and prime farmland soils than Alternate #5.
- Requires fewer acres of right-of-way than any other alternate.
- Provides separate ramp for businesses south of MD 197 (more direct access to businesses than Revised Alternate #2 Modified).
- Ramp from eastbound US 50 provides direct access to businesses at Bowie Gateway Center and allows residential traffic to stay off of US 301 and the west side service road.

Con
- Affects more properties than Alternate #5.
- Baysox traffic would have to use service road to get to MD 197.
- MD 197 exit from southbound US 301 is via the west side service road: MD 197 traffic would have to get onto service road at beginning, causing unnecessary traffic to clog the service road.
- Provides only one chance to exit for Bowie Gateway Center and MD 197, resulting in the worst accessibility of any of the alternates.

(3) Revised Alternate #2 Modified

Pro
- Provides best LOS overall during peak hours.
- Provides best V/C ratio of any alternate in a.m. peak period.
- Requires less right-of-way than Alternate #5.

Con
- Requires more right-of-way than Alternate #2 Modified.
- Does not include a slip ramp south of Route 197 to access businesses.
- Extra bridges are required to keep service road continuous underneath MD 197 at US 301.
- Motorists cannot access Collington Plaza/Wal-Mart from the diamond interchange without taking a circuitous route.

(4) Alternate #5A

Pro
- A 100-foot shift in the mainline alignment moves the highway away from homes on the west side of Route 301.
- Affects fewer properties (38) than any other alternate.
- More direct access is provided to Collington Plaza/Wal-Mart than with Alternate #2.
- MD 197 traffic can easily access either the service road or US 301.
- Separate access to MD 197 from US 301 is provided (similar to Revised Alternate #2 Modified).
- An extra ramp off of US 301, south of MD 197, to access the service road provides more convenient access to businesses, both north and south.
- A two-way service road is provided.
- Results in better LOS at the MD 197/US 301 ramp intersection in the p.m. peak period.
- Better LOS than Alternate #2 (acceptable at all intersections).
- Equal to or better LOS and V/C ratio in p.m. peak period vs. Alternate #2.

Con
- Most costly of all alternates.
- Displaces more businesses (4) than Alternate #2.
- Eastward shift of alignment makes existing businesses less visible from mainline US 301.
- Disturbs more Soils of Statewide Importance and prime farmland soils.
- Disturbs 0.34 more acres of wetlands and 650 additional linear feet of streams than Alternate #2.
- Disturbs 7.9 acres more forest than Alternate #2.
- Left-exit from northbound US 301 is inconvenient for motorists wanting to access the east side service road at Mill Branch Road.
- Eastbound US 50 traffic cannot access the service road until south of MD 197.

(5) Alternate #5B

Pro
- Slightly less costly than Alternate #5A.
- Lines up southbound US 301 ramp to service road, south of MD 197, opposite the MD 197 eastbound ramp. More efficient circulation pattern.
Con
- More costly than Alternate #2.
- Disturbs more wetlands and streams than Alternate #2.
- Impacts one more property and one additional acre of right-of-way than Alternate #5A.

D. Other Considerations

The Public Hearing Brochure contains a section on "Thinking Beyond the Pavement". This section is intended to address future coordination of concerns such as pedestrian circulation, control of vehicular speed, problems of diversions through residential neighborhoods, aesthetics and streetscape opportunities, etc. Given the City's transportation policy of seeking multi-modal solutions and the City's emphasis on trails (as highlighted in the City Trails Master Plan approved earlier this year), specific trail facilities should be included in future engineering plans for this interchange project. At a minimum, the engineering design should include the following trails:

1. Continuation of the off-road trail system along the north side of MD 197 to the east side service road.

2. Provision of on-road trails from the east side service road to Prince George's Stadium.

3. Provision of on-road trails along the entire length of the east side service road and along Harbour Way.

4. Provision of off-road trails on the north side of Excalibur Road, between the existing trail and the west side service road and along the west side service road from Excalibur Road to the access drive between the McDonald's and Bob Evans restaurants.

The City also has an emerging emphasis on wildlife preservation as part of the site development process. It is therefore recommended that SHA commit to making every effort to comply with the City's wildlife guidelines during construction, as part of "Thinking Beyond the Pavement".

IV. Recommendation

Because Alternate #5B provides one of the best LOS and V/C ratios, improved travel times and the best accessibility to local businesses, while offering a cost-effective highway alignment that is also sensitive to adjacent land uses, staff recommends Council support Alternate #5B, with several modifications and conditions:

1. A direct ramp from eastbound US 50 to Mitchellville Road shall be included in the interchange design.

2. Future engineering studies for the project shall include the following trail facilities:

(a) Continuation of the off-road trail system along the north side of MD 197 to the east side service road.

(b) Provision of on-road trails from the east side service road to Prince George's Stadium.

(c) Provision of on-road trails along the entire length of the east side service road and along Harbour Way.

(d) Provision of off-road trails on the north side of Excalibur Road, between the existing trail and the west side service road and along the west side service road from Excalibur Road to the access drive between the McDonald's and Bob Evans restaurants.

3. All future construction shall comply with the City's Wildlife Habitat Management Guidelines.

4. Trailblazer signage and directional signage shall be included to ensure that local businesses are identified to motorists using area roadways, especially MD 197, US 50 and US 301.