A BETTER BURNSIDE Context, Constraints, and Opportunities of the Burnside Bridge Corridor Megan Burns | Artur Paes Queiroz | Will Roberts | Michael Williams
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Goal & & Problem Problem Statement Statement Goal Context Context Study Area Area Study Zoning Context Context Zoning Neighborhood Context Context Neighborhood Cross Sections Sections Cross Cross Sections Sections Cross Pedestrian Context Context Pedestrian Pedestrian Opportunities Opportunities & & Constraints Constraints Pedestrian Bicycle Context Context Bicycle Bicycle Opportunities Opportunities & & Constraints Constraints Bicycle Transit Context Context Transit Transit Opportunities & Constraints Transit Motor Vehicle Vehicle Opportunities & Constraints Constraints Motor Environmental Opportunities & Constraints Environmental
Goal & Problem S t at ement
To c re a te a n i nv i ti n g enviro nment fo r all mo des, whi le i n c re a si n g e f fici ency, acces s t o t rans i t and emerg enc y ser vic es.
The impetus to plan a Better Burnside is the result of numerous events and plans that created an imperative to improve access and usability, increase the level of protection for pedestrians and cyclists, boost a more balanced mode share, and many others. The issue of safety is absolutely critical to address as soon as possible. Until 1995 there were no bike lanes on the bridge. Since then the City has invested heavily in its bicycle infrastructure, but Burnside still just has the paint. In the summer of 2015 two pedestrians were struck and one was killed when a vehicle lost control and ran onto the raised sidewalk. Burnside creates an unwelcoming and dangerous environment for both pedestrian and bicycle travel due to the great speed at which vehicles traverse the space. The 85th percentile of vehicle speed is 38 MPH heading westbound and 41 MPH going east. Pasanen (1992) found that the mortality rate is around 80% for collisions involving a pedestrian and a vehicle traveling at 40 MPH. The Better Burnside project aims to increase safety on the bridge by creating a protected bike-way and sidewalk, slowing down motor traffic, and improving connections to the bike-way network. There are conflict and dangerous vehicle mixing zones at both bridgeheads that need to be addressed.
Goal & Problem S t at ement
The project also hopes to find a configuration that decreases congestion at peak times for transit users, increases accessibility for emergency vehicles during peak times, and increases overall mode share usage of the bridge. Buses heading eastbound over the Burnside Bridge currently experience peak delays resulting in a 25%-40% drop in average speed and large increases in travel times. In reconfiguring the bridge to expedite bus trips, it will be assumed that emergency vehicles will have access to and be able to share any dedicated lanes with transit vehicles. The Burnside Bridge only experiences about 6% of all vehicle traffic as bicycles. This is a very low modal split compared to other Portland bridges such as the Broadway (15%), Steel (19%), and Hawthorne (27%). It is our belief that a better Burnside can exist. It is the purpose of this project to reenvision Burnside as a safe and natural choice for pedestrian and bicycle trips between Downtown and the rapidly-developing inner eastside. Inherent in this project is a slower, safer traffic speed and increased public transportation efficiency. Our objectives are to address the below issues: - Low cyclist and pedestrian mode share as compared to other bridges - Deficiencies and gaps in cyclist and pedestrian facilities - Delays for public transit and emergency vehicles during afternoon rush hour - High vehicle speeds on the bridge. 1
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The Burnside Bridge and its east and west bridgeheads represent the oldest bridge in Portland, with several dramatic bridge-face changes over the course of its existence. The bridge spans the narrowest portion of the Willamette River and it’s style was influenced by the City Beautiful Movement of the 1920’s. The bridge is considered a main thoroughfare between Beaverton and Gresham, more locally connecting the East and West side business and commercial districts. The Burnside Bridge is also designated on as an emergency vehicle route and is used for local freight delivery. The Burnside Bridge is the geographic center of Portland. Burnside street demarcates north and south while the Willamette River separates east and west. However, the bridge and surrounding spaces do not reflect the cultural ideals of the city that have come to define it - livability, sustainability, modal equity, and smart planning/development. The bridge is on the cusp of another transformation. With unprecedented growth in Portland and numerous City policies and plans aimed at channeling mixed-use development near the urban core, this area is ripe for a boom.
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The east side of the Burnside Bridge is a couplet separating east and west-bound traffic. East bound traffic comes to an intersection as it exits the bridge where Burnside crosses perpendicular to highway 99E (MLK Jr. Boulevard) which runs south, and the next block, Grand DAVI S Avenue, which runs north. MLK has both bus transit and streetcar lines, but does not have any bicycle infrastructure. One block south of Burnside on MLK is Ankeny, a neighborhood greenway street designated for slower speeds and high-traffic bicycle use. On the north end of couplet there are two mixed-use facilities being built. The businesses in this district are industrial and mixed-use. 3RD
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The properties that make up the west side bridgehead are all privately owned night clubs, bars, restaurants, and rescue missions. Before traffic reaches NW 2nd avenue from the bridge there are two pedestrian staircases from the bridgeI84 thatFWY-I5 lead toFWY properties under the bridge, one on the north side and one on the south side. Directly underneath the east side of the bridge is a blue and red line, red, and green max station. Businesses directly adjacent to that stop include the international NGO Mercy Corps, the Portland Saturday Market.EVERETT Directly T E Tand VER E north of this is a University of Oregon campus building, which is inside of a larger mixed-use facility. Directly to the south of the west end bridge head you will find the Salvation Army Female Emergency building, more bars, and a Libertarian Street Church.
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The district directly to the west of the Burnside Bridge consists of Portland’s historic Old Town Chinatown district. Within this area all streets are designed as a part of the downtown district, with no left turns off Burnside and single directional north/south streets. Along our project scope area you will find 4-6 story buildings. Ea s t b a nk Es pla
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The geographical scope of this project has been defined as the Burnside Street corridor extending from NW/SW 3rd Avenue to NE/SE 6th Avenue. This corridor includes the Burnside Bridge and short stretches of Burnside Street on either side which are referred to as the western and eastern bridgeheads.
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BURNSIDE The CX (Central Commercial) zone at the west Burnside bridgehead fosters dense development with large buildings oriented towards pedestrian activation and a safe and attractive streetscape. The outright allowed uses in the CX zone provide a wealth of opportunity for development ranging from residential, office, retail, and many institutional uses. The CX base zone is superseded by the overarching plan district, in this case the Central City plan. The Central City plan dictates more fine grain authority on development standards like FAR and height limits. It also provides bonus options to incentivize public goods. The FAR around the Burnside Corridor ranges from 4:1 up to 15:1 with maximum heights, before bonuses, reaching 100 to 460 feet.
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Although the IG1 (General Industrial 1) in the central eastside is conserved as an “industrial sanctuary” the recently adopted SE Quadrant Plan has included an expansion of what it calls the Employment Opportunity Subarea (EOS). The EOS allows development to include a higher share of traditional office and retail space. This in addition to the interpretation of “industrial office” and “craft industry” are making development near the bridgehead more appealing.
The EX (Central Employment) zone at the eastern Burnside bridgehead is intended to create a mixed use built environment that is predominately focused on increasing industrial and commercial opportunities near the central business district. The outright allowed uses in the EX base zone include the core residential, office, and retail; while also allowing many heavy industrial uses such as manufacturing and warehousing. The east bridgehead is also in the Central City plan district and allows FAR from 6:1 to 9:1 and maximum heights of 100 to 200 feet.
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N eighbor hood Cont ext Immediately Applicable Plans: The Southeast Quadrant Plan (adopted July, 2015): Transportation implementation action T25 calls to, “Improve pedestrian and bicycle connections from the Morrison and Burnside Bridges to the Eastbank Esplanade to make it safer, accessible and more direct.” The plan also identifies strategies of growth management for the entire central eastside.
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Old Town / Chinatown 5-year Action Plan: Foster redevelopment in the neighborhood through increasing these three action items; Neighborhood Investment, Business Vitality, and District Livability. Burnside Bridgehead Catalytic Framework Plan: This redevelopment plan from the Portland Development Commission lays out a development vision for a four acre site directly adjacent to the Burnside Bridge at the east bridgehead.
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“[T]here are at least 1,700 new residential units proposed, under construction or recently completed in the district, approximately 50% of which are at the Burnside Bridgehead and surrounding properties and split between the Buckman and Kerns neighborhoods. - SE Quadrant Plan
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The views from the sidewalk on the bridge are excellent. High traffic volumes and speeds make this corridor a less than pleasant environment in which to walk. The western bridgehead appears economically depressed, is home to a significant homeless population and does not appear to be swept often. This hurts the pedestrian experience. DAVI S
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I84 FWY-I5 FWY A significant tree canopy exists west of the bridge. Smaller street trees exist east of the bridge. The medians on the western bridgehead are unkempt dirt interspersed with trees; the median is not a place to walk or hang out.
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Some intersections do not have crosswalks on all four legs. Some intersections do not have curb extensions. Some eastside D N intersections have corners with curb extensions and built-in bioswales. These add greenery and safety. RA Ea s t b a nk Es pla
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The Burnside corridor from NW/SW 3rd Avenue to SW/NW 6th Avenue features sidewalks on both sides for the entire length. A significant homeless population on the west side can make people feel uncomfortable and reduce the effective sidewalk area.
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Dense residential development can bring more non-motorized users to the bridge, if safe and comfortable.
Cars traveling around 40 MPH make walking along the bridge very uninviting.
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Installation of bioswales (as at the eastern end of the corridor) and surface treatments (like that at NW 2ndANK Avenue & Burnside) at some intersections ENY would enhance the pedestrian experience.
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Excess road width exists on both bridgeheads.
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The highly attended Saturday Market could have a role in creating a more pleasant space for pedestrians through programming and more focused connections to the bridgehead.
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An undeveloped lot at the bridgehead could be redeveloped to activate the space.
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One of the dominant issues for pedestrians is the presence and sound of traffic along the entire corridor, especially during high traffic periods. Excellent views are available to pedestrians crossing the bridge over the entire span.
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The western bridgehead median is not friendly and exists primarily ANKE NY as a planting strip for street trees. It creates a safe haven for those crossing Burnside Street. Upgrading A S H the the dirt surface would improve look of the street.
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The significant homeless population at the western bridgehead creates sanitation problems, fosters unease & impacts usable sidewalk width.
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Low bicycle mode share as compared to other bridges indicates choices made by cyclists to avoid this bridge.
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The northwestern end of the bridge needs better guidance to all street users. A means to turn left onto SW 2nd Avenue for westbound travelers COUCH on Burnside would help reduce illegal crossing activity. 1ST
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Physical protection is needed for both cyclists and pedestrians over the span of the bridge. If cyclists were higher than street level (eg at or near sidewalk height), they would enjoy better views.
Dense residential development can bring more non-motorized users to the bridge, if safe and comfortable. 3RD
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Elimination of car encroachment on the buffered bicycle lane markings at the NE Couch/Burnside would reduce the level of stress for cyclists at that intersection.
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BURNSIDE The bicycle lanes on the bridge expose riders to significant volumes of high speed traffic.
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More bicycle racks are needed in some areas.
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Bicycle lanes on both sides of Burnside ANK ENY Street east of the bridge and/or left turn bicycle boxes would help cyclists with the 3 through travel lanes.
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The presence of 8 drop inlet grates in each of the bridge bicycle lanes causes riders to weave closer to traffic.
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Installation of bicycle lanes where none existANKE would make this corridor NY more inviting to cyclists.
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Bus stops are located at various places along Burnside Avenue. Y Streetcar lines and buses run on Martin Luther King Boulevard F W 4 and Grand Avenue. With one or two exceptions, stops appear to- I 8 E be appropriately sited and well-executed. AV RA
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Given the residential capacity being built Sat the Couch/Burnside terminator, moving the streetcar station on MLK/Burnside from its current site to a spot just north of the Couch/MLK intersection may be beneficial.
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Moving buses over the bridge quickly during peak commute times would save time for many commuters
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Moving the bus stop located on the northwest corner of the bridge would place passengers nearer to their destination, reduce interaction with the homeless COUCH and eliminate the bicycle-bus conflict there.
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If a dedicated transit lane is created, this lane could be used by carpools and emergency vehicles. Control of the traffic signal at Burnside & MLK could empty this lane when emergency vehicles needed it. NAIT O
A reversible lane, one which switches direction based on dominant weekday traffic flows, could help to improve congestion.
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Traffic calming forCOUCH motorists approaching the bridge and on the bridge would reduce the noise and acceleration that is commonplace.
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Traffic speeds on the bridge are high; surveyed average speeds DAVIS limit. exceed the 35 MPH speed
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EVERETT The bridge experiences significant congestion during the weekday evening commute. Traffic backs up over the entire length of the bridge. Eastbound emergency vehicles are unable to cross quickly at these times.
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Allowing the right turn lane on the SE corner of the bridge to empty more quickly would improve traffic flowENY and reduce conflicts between vehicles, bicycles ANK and pedestrians. Signal timing modifications at MLK & Burnside could improve pedestrian safety.
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It is unlikely that a significant vehicle capacity reduction would be acceptable. The stated constraint is that removal of one lane is possible but no more. Smarter movement of people across the bridge is needed.
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The eastern bridgehead has aesthetic challenges. Three and DAVIS four lanes of through traffic at the intersections with Martin Luther King and Grand create visually and aurally intimidating intersections.
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The bridge is seen by many as ugly. This is due to the wide, unbroken expanse of paved surface. This surface washes out the warmer, more interesting aspects of the bridge. The sign structures and street lights on the bridge are cold and uninteresting.
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Slowing traffic or reducing its volume would make the corridor more appealing for everybody.
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Burnside Skate Park The curb extensions and bioswales seen in the corridor’s eastern end improve safety and soften hardscaped areas. Adding a bioswale component to the bridge would help with bridge runoff. Vera Ka t z E astba nk E s p lana de
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There is a large open space just east of SW 2nd Avenue on the south side of Burnside. This may A H be an infill buildingSsite but it has possibilities for place-making.
Both the sign structures and street light posts could be adorned in some way to break up the bleak view Ankenythat motorists see. Plaza
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