A NEW VISION

FOR HILLSBOROUGH STREET W ALKABILITY AND REDEVELOPMENT STUDY

RALEIGH, NORTH CAROLINA

OCTOBER 26, 1999

HillSborough St';; I

r\W"'I"III1'

Sponsored by:

Hillsborough Street Partnership

Prepared by.

W ALKABLE COMMUNITIES, INC. AND TRIAS & ASSOCIATES Dan Burden, Michael Wallwork, P.E. and Ramon Trias

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EXECUTIVE SUMMARY

BACKGROUND

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Hillsborough Street is one orlhe most important corridors in Raleigh. II links the State CapilOllo the State Fairgrounds, connecting the heart orlhe city to one of our state's greatest institulions. NC State University Bordering a retail d istrict and historic neighborhoods on one side orlhe street and the University on the other side of the S!feet. .the area is diverse, lind densely populated giving it the potential to be a prime destination in the city and \0 contribute 10 it both economically and aesthetically

The Hillsborough Street Partnership was created to help this historic corridor Jive up to ils potential. It is a partnership of the City of Raleigh, NC Stale University, the Hillsborough Street Merchants Association, The University Park Homeowners Association, The Triangle Transit Authority, The North Carolina Department of Transportation and the Triangle J Council ofGovcmments. Its goal is to create a plan for the area, develop an implementuion strategy and work through the Partnership to identify and secure public and private fund ing for the plan.

PROCESS On October 22M

, 1999 the Hi llsborough Street Partnership began bringing IOgether the community to listen to its concerns and learn from the ideas expressed. In Ihal one day. more than 500 people participated. The leadership of the City of Raleigh, the Universities and Colleges, Wake County, Neighborhoods and Businesses were all involved.

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Creating A New Vision/or Hillsborough Street, page 2

Hundreds of people packed mlO a IOwn mcelmg 10 share theiT ideas and leam about the project. On October 23 'cl

more peoplc joined Ihe process. On that brisk Saturday morning they w:llked the street with cameras, wheelchairs, and surveys to help define areus needing improvement. Later that day, more than a hundred people gathered around design tables and began drawing their own vision of Hillsborough Street. Children drew up their own plans 10 challenge and complement the adult vision.

All of this infonnation was given to a design tealll oft\\elve, led by nationally renov. ned expens Dan Burden. Ramon Trias and Michael Wallwork, PE. The design team consists of Raleigh's bcst and brightcst design and transponation professionals representing a number of mlereSIS - both private and public. The team incorporated Ihe conccrns and ideas of nearly 300 panicipants into a plan for the future of Hillsborough Street.

THE PLAN At the hean ofthc plan is changing the street itself from a four lane, congested Street, to a two-lane avenue moving vehicular and pedcs(fian traffic more safely and efficiently Roundabouts are used to create attractive gateways and vistas, minimize speeds, reduce the problem ofleft tums (where most traffic accidents occur), simplify pedestrian crossings and keep (faffic flowing gently along the street.

A number of o ther design features complement the planned regional rail stop on NC State's campus and provide a foundation for the redevelopmcnt of the area.

Strcctseape Design Features on Hillsborough Street

• Two travcllanes (rather than 3 or 4) • Two combination buslbike lanes • Wide sidewalks (14' minimum in commercial areas) • New intersection designs, including roundabouts and bulb-outs • High quality public space on University side; University Plaza and Bell Tower Square • Two new urban villages; (I) Pullen and (2) Stanhope • Redevelopment of existing commercial buildings and new construction following urban concepts • Enhanced transit on Hillsborough Street • Improved navigational aids for walking, driving and locating parking • Bury, reorganize or clean up utilities • Improved lighting • Improved disabled accessibility (ramps, sidewalks)

The plan also creates a strengthened link from Hillsborough Street to Clark Avenue and the Cameron Village area by using Home Street as a connector. This new connection provides redevelopmcnt opportunities in this historic neighborhood (early 1900s). A roundabout at the interscction of Clark and Oberl in Road helps calm what has been a dangerous congested intersection and provides a gateway and an aesthetic focus to the area.

Neighborhoods Design Features (Off Hillsborough)

• New roundabouts • New street connections • Improved sidewalk maintenance and public landscape • Improved on-street parking management • Set standards for infill of buildings

Walkable Communities, file alld Trias and Associates

Creating A New Visiofl!or Hillsborough Street, page )

The plan also focuses on strengthening the link bctween the UI11\crslty nnd the community It cnhnnccs pedestrian connections, creatcs beautiful and functionnl publ io.: spaces and focuses on a network of walkways linking thc community to the planned regional rail line.

Universit y Oesign Featu res (Orf Hillsborough)

• Enhance public spaces, including quadrangles, greens and plazas

• Enhance pedestrian connections to neighborhoods

• Design rail station areas as pan of the overall network of walkways

• Eliminate asphalt driveways in favor of university of "all campus path"

• Relocate displaced parking

Example Round about . A roundabout can be placed in this right of way while returning significant green space to the edges. A roundabout reduces speeds. reduces crashes, improves pedestrian access, and creates an aesthetic gateway and focal point. Roundabouts provide improved access by safely accommodating V-tum movements. This roundabout will handle all turning movements of all size vehicles.

Walkable Communities, Inc and Trias and Associates

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Report

{II lare·October 0/19fi9 re:.idelllS C?(Raleigh. Sorrll Carolil/G rook parI ;11 tI plal/llillg c:lwrreu(! 011

lVa/kabiliry and cOlI/mlll/ily del·e/opmelll. jOCII\llIg all Hi"-"horollgh STreet. ji-Olll Gorll/all Faircloth RO'I.! (0 Oberlin Road. This repOrt s!IIlIlIIori::es si \ dn.n of lI'ork. /1111 . alld crear;I'iIY by -100 people 11'110 garhered together brearhillg lIell' hfe and ideas iura llzi,<; rira! hislOric dis/riel.

Walkable Commflni/ies, Ili c. alld Trias alld AssociQ/esjaci!iwred a series oj/we/I 'e (!1'eIllS lI'illl a broad speClrllm of Hillsborough SII"eellleighborhood par/llers. Pm"fllers ineluded The Cil), of Raleigh. North Carolina Stale University, the Hillsborol/gh Slreel .\/erclwIIIS Association, The Unil'ersif), Park Homeowners Associarion. The Triangle Trallsir AII/hority. The North Carolilla Depanmelll of Transportalioll and the Triangle J COl/llcil ofGovemmellls. This repor/ addresses rhe activities alld recommelldations made by over 400 panicipams ill rile charrelt€ process.

Question a nd Coal. Can the fonner prosperous Irolley car suburb, partner to the University, diverse. historic commercial dislrict and neighborhood. return to a place focused on people. transportatIon chOIce. and vibram, secure public realm? In recent ycars middle-aged Hillsborough Street has come 10 be viewed as a ragged. fast-speed concrete racetrack. harsh on pedesmans and bUSiness. With the building of a nc\\ regional rail line through campus. the opelllng o f Western Boulevard, and Ihe shi ft of the campus IOward Centennia l Campus, It is lime to reinvelll and recharge HIllsborough St reet as a place for people, paSSIon . parades, and profitability

The caretakers and s takeholders of Hillsborough Street seck a sense of purpose. place and a much greater mix of activity and excitement. Hillsborough Street will be a destination or its own. Buildings will be built or reslored, bringing added value to the- Street and neighborhood. Traffi c speed, volume and noise will be reduced and slowed, with ruture speeds of 20·25 mph. Innova\!ve techniques in road building \\ill lake away lanes, build vistas tem111laung in altracuve roundabouts, and giving more emphaSIS to mOVIng people with buses. bikes and foot power Pl!destrians. bu!)t:s and bicycles Will make up a much highcr proportion of travcl.

Parking will be easier and more con venient. Two new urban villages will be created over tIme. Meanwhile, navigation will be eaSIer, street crossings will be simplified, walking rrom existing neighborhood streets will be more secure, fun and rewarding. More stores, includIng health food eateril!s, outdoor and rooftop cafes, bookstores and real clothing stores are envisionGd by students and residents. Young children envision a place mixed with lots o r people, more green, with 100s of fun activity centers.

Vision \'s. Realit y But today the \'isitor in a supercharged car sees graying parking [OIS, scattered trees chopped by utility lines. wide roads and a sense less soup of building types that Jom then Jump away from the streel. Hill sborough Strcet has suffered from a lack of planning and vision ror much of its past rony years.

During the charrelte 85 partic ipants took group walks, recording their images with photos. Some moved in wheelchairs, finding impassible bafflers. Pedestrians were seen at times in some commercia! pockets. but not at all in other important pariS of the corridor There were few people siui ng in public. Only a few brave bicyclists were secn in this area during the study period.

Characterizing the recent history of Hill sborough Street, an important social gathering space, the local movie theatre, closed many years ago, opened shon ly as a tVleDonalds restaurant , then moved out, lea\'i ng a vacant, boarded up bui lding. There IS no access to a public restroom, no identifiable source of drinking

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water Places to sil or toss trash are hard to discover Waitmg for transit IS uncomfortable in most places. Shade is limited. There IS no clear sense of pl:l!.:c making. unifomlity or Identity

Most noticeably, both areas lack Opportulllly lor social and CL\'ic events. For Ihe purpose of this study Walkable Communities will concentrate on methods to create place, make usc of compact land development, bring slreets 11110 a healthy, appealing form, while keeping lraffic in motion, and generate a walkable, welcoming environment.

Hillsborough Street has great potential. The Hillsborough Street neighborhood has a diversllY of housing types, starting wllh apartments, duplexes and other moderate density living units, edging off inlo many blocks of historic single-family treasures. Many rotting older cl usters of student ghetto have been bulldozed while the grand homes arc being restored and brought back to their anginal colors and pageantry Neighborhoods of the character and quality of the University Park area are rarety built today

There are many new, united partners ready to act on a new vision. The Umverslly has a new chancellor, the North Carolina Department ofTransporwl1on is charged with new management and a new mission statement to be a good neighbor, and many new investors arc recognizing the value of building small independent buildings in estab lished neighborhoods. The time is right for setting a vision and drawing new local and regional investors.

Creut i119 .-\ ;\"eu} \ -isioll for H i/h!Jorough Sl r('el. jJuye {,

/Valkable Commllllities. Illc alld Trias alld Associ(ll(!S

Creating A New Vision/or llil/sborough Street, puye -

CO"SE\SLS

The workshop achle\cd a clcar understanding of ISSUCS and opponumtlCs 011 "alkable and sustainable community tOPll'S, and prondee! an effecl1\c forulll 10 explore other planning and deSign Ideas that should help shape the dc\Tlopme1lt of Hillsborough Street, the campus and surrounding neighborhoods.

In general the VISion that emerged Iransfonns the Hillsborough Street lIl to a qllleter. more vibran t, dlversc public realm. It would h,we a strong set of vistas and ga teways, a dIstinct center and commercial dlstnct. There would be plenty of places to work, shop and play. More space would be assembled for festivals. parades. exhibits and publJc assembly The ne ighborhoods would be healthy and affordable. There \\-ould be man) things to see and do along the street. Hillsborough Street would become <l destm<ltlon.

HILLSBOROUGH STREET TRA~SPORTAT IO"

Hillsborough Street handles a vanety offuncllons. It tradillonally has been a key access link11lg important destmations such as N.C. State, Meredith College. the Stale Capitol and significant downtown and area employment centers. 11 is an Import:mt pedestrian way and a lively business center Transportation has always been an important function of the Street from Raleigh's earliest days.

Existing Roadw~y System. Hillsborough Street is a State Maintalilcd Highway within the City of Raleigh.

It provides: • Access to the histone State Capitol :lnd the do\\nto\\11 at one end and the Fairgrounds at the other • Access to the university • Access to adj:lcem neighborhoods • Access to the buslIlcsses along the route

Transit : It is a sigillficant transit route used by Capital Area Transil, Triangle Transit Authonty, and Wotnine buses.

Posted Speed . 35 mph.

Road way Width : 36 feel between curb faces along the weswm end from DiXie Trail 10 Furches Street; 50 feet between curb faces in the other sections.

Lane Arrangement: The road cross-section varies considerably At its western end it narrows from 4 Janes at Gorman Street to three lanes at Dixie Tmil. At ItS eastern end it varies from 4 la nes with or without tum lanes, with or without parking on the north side. The cross-section changes to one lane eastbound and two lanes westbound between Furches Street and DiXie Trail.

Traffic Volumes: Traffic volumes vary along the street from a low of20.000 vehicles per day to a high of 30,000. The existing intersections are operating at or ncar capacHy

Sarety: There are a high number of crashes at every section along the road. The most frequent crash types are:

Walkable COllllllllllities, jllc alld Trias alld Associates

Creatillg A. New \ 'ision for II illsborollgh Stl'eet, pafle "

• rear end • left turn crashe::i • left tunu ng \-ehlclcs hit from behllld • right angle cr;lshcs • side swipes

The crash rate is 19 crashes per million \chicle-miles: a raIl! o,er four times higher than the state average for this typc of roadway In addition, Hill sborough Street has it 111gh frequency of pedestrian crashes,

Stree t Des ign Framework

In keeping with community wishes, Hi llsborough Strect ha::i been redeSigned with a mcdian, combined bus lane/bicycle space, and roundabouts at major InterseCllons.

During the morning peak, the roundabouts pro\'ldc an acceptable Ie\cl orscnlce. Dunng the Pf\l peak. all smgle lanc roundabouts will provldc an ncceptnble level of sen' Ice except at Horne Street and Pullen Road.

vsing cu rrcnltraffi c countS, the roundabout at Horne Street \\111 be reqUIred to handle 200 more through vehieles westbound than liS peak design capacity AI Pullen Road. the roundabout has two lanes east/west with a single lanc on Pullcn Rd Pullcn Rd extenS10n and a right turn only lane added to the south approach, Even with this lane arrangcment it will be cnlled upon to handle about lOa more vehiclcs per hour than its peak capacity Much of the through traffic currently using Hillsborough Street most likcly will diven to o ther routcs which \\tll allow these t\\O location to operate within acceptable standards.

Traffic signa ls currently are stntgghng 10 nccornmodate eXlsling \-olulTlcs. Additional roundnbouts were added to replace the existing signals and to handle the existing traffic.

Due to the relativcly high traffi c volume~, pedestrian operated ::ilgnnls ha\e been provided to creatc gnps 10 hclp pedestrians cross the road in areas away from roundabouts.

Buses: Bus stops arc rccommended for upgrades to Include bus shelters. An 8 n. wide lane would be pro\ ided on both sides or Ililisborough Strect for usc by busl.'s or blcyclcs,

i\ lcdians: Although. at this stage, the proposed median is only four fcet Wide it provides minimum space for pedcstri ans to share while crossing thc road. ThiS median \\111 help slo\\' traffic, prov ide spaces for landscaping and would pro\lde a pedestrian refuge. This laller func!lon will hclp pedestrians cross the road and reduce the nllmber of pedestrian crashes. Long teml, wldellIng the median to 12 feet can allow Inrger plantsJtrees within the medtan.

Roundabouts: Workshop participants called for roundabouts at a numbcr of locations. Additional roundabouts wcre included as e>.plained above 10 provide thl.' necessary capacity fo ll owing the conversion of Hillsborough SlreetlO twO Innes.

r>.lodem roundabouts should not be confused with old fashioned traffic circles. Rou ndabouts are much smaller, safer. and efficient.

Walkablc Communities. Inc and Trias alld Associates

Creating A New Vision/or Hillsborouyh Street. parw I)

These roundabouts arc cxpccwd 10:

• Slow traffic. • Reduce crashes by 60-80%. • Reduce vehicle enllSsions • Reduce delay to all users of the intersection • Provide an acceptablc level of ser\'lce except at two inters~ctlons \\ here some tmffic \olumes

should be displaced to another route. • Improve appearance and ac-sthellcs.

I)cdcst rians: Pedeslrians need four conditions to cross a road sat'i:-Iy'

• Low vehicle speed • Simple decision making - deal with one dlrecllon oflrafjic ill a time • Adequate gaps between vehicles • Visibility ofconfl lcllng vehicles

Bicyclists: Buses and bicyclists can use the 8-foot wide lanes proposed for bOlh sides of the street. By slowing vehicle speeds with medians and roundaboU!s. bicyclIsts can lra\el in a slower speed environment.

Tr:lffic Flow: Typical vehicle lanes on signalized rood.; carry approximately 850 "chicles per hour. Currently Hillsborough Streel exceeds this capacity By con\'ertlllg Hillsborough Streelto IWO lanes, the g::lpS between vehicles will be reduced. More sign::l1izcd pedestrian crossings arc provided to help pedestrians cross the morc const::lnt vehIcle flow Roundabouts !!llIllInatc left turn vehicles frOIll the through lanes. By removll1g left turn vchicles from the through lanes, road capaci ty is significantly Increased. Left tum vehicles enter roundabouts Just hkc any OIher vehicle. As such they do not block a lane unless they arc yieldll1g to circulating vchicles.

Access l\lanagcmclll: Installing a COntlllUOUS IllcdHUl blocks left turn acccss to somc driveways. In doing so. crashes arc reduced, espccmlly those crashes due to drivers turning len II1tO or out of driveways. Roundabouts compensate for the reduced left lurn accessibility by providing for safe V-turns at each roundabout.

In the future, driveway acccss to parking gamges should not be provided from Hillsborough SI.

Air Q uality' Modem roundabouts reduce vehicle pollulJon emiSSIons up to 50% In the peak period and 70% in the off peak pen ods since they reduce:

• The number of vehicles Ihat have 10 SlOp • The time Ihal vehicles arc stopped • The acceleration rate

Because of the air quality improvements roundabouts are eligible fo r Federal Congestion Management and Air Quality funds in non-attainment areas.

Walkable Commllllities. file and Trias and Associates

Creating A New Fisionfor Hillsborollgh Street. page 10

Sa rety I m pro' Clll cnt s. The roundabouts !i.:;lIured III till' rn·oJ11rn~'lld..:d plan pro\ Ide Slglll ficam safet) benefits as Illu strated belo\\

Rercnl Tr;l fi1c Accident lIis t o r~ (3 YClIr)) ;111(1 [:\oPCl'll'd IlIIpro, (' 111 (' 111 .') dU l' 10 ROUlld:.lbouls

Roundabout Location Rear I Left Sick Right (Hillsborough Strcci at) End Tum S\\ Ipe :\nglc Pedestrian Gomlan Fa ircloth 7 , 3 9 0 3 Rosemary Shepherd 26 - 0 0 I DI xie Trail Friendly 18 II

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Avenue Dan Allen - Brooks 4 0 I 4 I 0 A venue Home Street 28 I 2 4 3 Entemrise Watauga 2; ; I 0 2 13 Pullen Road Femdale 8 4 4 2 3 Lane

. Oberlin Road * II 19 I 0 8 I

Total without I

127 50 26 14 4; Roundabouts Expected Reduction -64 -50 -13 -I I -40 Towl with Roundabouts 63 0 3 3 5 Percent 1m )rovement 50% 100% I 90~·o 80% 90%

Oberli n Roadlllili shorou gh Road. The realignment ofOberlm Road to Pullen Road reduces the need lor :llraflie signal althis intersectton Beeau c;c Oberlin Road IS proposed 10 becomc an emergency \'ehicle rOllte, rcmoval of all Signalization at thiS intersection IS nOI practicable. Thcrcfort' a pedestrian oper~ltcd signal wuh a emergency vehicle o\'emdc IS recommended.

• The Impact of this change will be a shift of the dTivers \\ho I.:urrently tum left from Oberlin Road into Ilil isborough SI. to the roundabout m Pullcn RoadlHillsborough St. and to Clark A ven ue east.

lIorne Street to C lark Avenue to Cameron Village Link: upgrade side walks to full paving from curb to right-of-way with tree wel ls; add roundabout at Homc Street and Clark Avenue to slow traffic, add median to Clark Avenue where it does not c:\lSt; add roundabout at Clark Avenue end Oberlin Road to Improve capacity, slow traffic ,1I1d create a focus for the area.

Oberli n Road to Pullen Road Connection . PrOVides a direct connection from Oberlin Road to Pullen Road without a ffecting historic or other buildings.

• Provides a gateway into the UniversilY • Provides a more direct, continuous nonh-south link. • Slows westbound traffic as It enters the University and retail area of Hillsborough Street.

Walkable Communities, fne and Trias and Associates

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Creating A New Vision/o/' Hillsborough Street, page I I

1 ~ I PLE~IENTxrIO~

A "sustainable, llvable community" IS created by making one Improvement at a t11ne. Sidewalks, strect trees and other amenities arc installed ltltcrsecllon by intersection. block by block. Parking lots and fences can be removed and redefined by each owner De\'clopmcm pockets can start with one model. Individually, these changes do not create a Ilvable communliy Collectively. they provide the infrastructure needed for freshness, vitality, comfort, pride. welcome and a sense of place to work, live, play, shop and do business. In other words, the whole is greater than the sum of Its parts.

Dclh'crablcs: It is very important to produce immediate results that stakeholders, the press and other people can see. For example, a new section of sidewalk, new street lights, benches and trash receptacles, drinking fountains or a freshly painted crosswalk is visible whi le a transportation plan is a paper document that may never be seen or apprec iated by the public. The poml IS that a program, to keep its momentum, needs some quick wins. These early achievements are real and create the sense that something is happening; that government IS responsive.

Strategies; Improvements don't just happen. They reqUIre a well orcheSlraled thoughtful strategy that is Implemented over time. The followll1g strategies would proVide the structure under which the Hillsborough Street vision can be realized.

Hillsborough Street Partnership The Hi llsborough Street Partnership has builtll10mentum that will prove to be its grcatest asset to succcssful implementation of its vision. It has e ffectively engaged the stakeholders nccessary to make the vision come alive. Continued collaboration of the Partnership is essential to renlizing high quality results from this plan.

The Hillsborough Street Partnership consists of the followlIlg stakeholders:

• The City of Raleigh

• North Caro lina State Univcrslty

• The Univcrsity Park Homeowners Association

• Hillsborough Street Merchants

• Hillsborough Street Property Owners

• The Triangle Transit AuthorilY

• Triangle J Counc il of Governments

• North Caro lina Department of Transportation

The Partnership has kicked the project off to a strong start and should continue to take on a leadership role in implementing the project. Adding other stakeholders, such as significant businesses and employers outside the direct study area and other neighborhood groups could enhance effectiveness of the effort.

Walkable Commullilies. Inc alld Trias alld Associates

Creating A New Vision/ur Hillsborollgh So'eel. pag£' I::?

Sigmficant changes (0 Hillsborough Sm.:ct and the surroundlllg Jre;) \\ III eome about a" a re<;ull or contlllucd col bborallon among. the pannershlp. Hu\\ C\l'r the Jl1t"dUII11l":-o of Illlplclllt'nWltOI1 Illa~ pro\ e overly cllillienglllg to Its voluntcer nature. Ther("fore. Ihe I\!rtllcrslllr sllI,mld consider neatlllg J more fonnal orgamzalton to .l1Iend to the complc:\l1le" ofblllldmg Ihe pro.lCI,.'1

Busi ncss Im p rovc ment Dis l r ict f\ busllless UllrrO\ ement dlStrlCI would allow the Iii Ilsborough Street Partnl'r"llIp to take cOnlral of its destiny and provide a sing le voice for promoung the interests of the area. It \\ould pro\·ide a means 10 generate its own revenue and allo\\- ItlO set prioTilles for Implementation. The Hill sborough Street PartnershIp could act as the board of directors of the business impro\'emcnI dIstrict. A paid executive director, working under the dIrection of the partnershIp, would marshal the resou rces of the various partners, stakeholders and funding sources.

The business improvement dlstncl could take on a number of functlOns mcluding:

• Maintainmg public spaces such as pressurc washing SIdewalks, litter remo\·al. grooming the landscapmg, and repairing damaged bench(.;s and trash receptack::>.

• Hinng off-duty law enion:ement officers to enhance police presenCt' on the street and engage III more community oriented policing

• Installing and maint:Jming enhanced lighting

• Overseeing project devclopment and design

• Matchmg capital rundlng from city, state, and federal rundll1g partners

• Communicating wllh thc commun!ly leaders and clly oflicwls lIleluchng promotion and markctlllg or the district, providing IIlforrnallon and resource:, for de\elopers and real estate profeSSIOnals.

In its 199-l parking plan for the Hillsborough Strect \Iclnit), thc :-"lcLaurin Parklllg Company recommended establishing a busll1ess Improvemellt dIstrict to implement the plan's rccommendatlons. The recommendation recogni zed the need to manage parklllg to support businesses along the street. The city acted on Illany or the parklllg plan recommendations but did not establish the busmess improvemcnt district. Effort to gain concurrencc by City Council would ease tht' way to ImplementatIon of the project.

The mcchanics of selling up a busllless Improvement district will requi re drawing a diSIrlC\ boundary, documenting tax appraIsed property values, and developing altemallve surcharge rates that will generate the revenue needed to accomplish proJcct objectives. The process will reqlllfe int!llJatc Ill\·olvement with property owners and business interests in th(.; proposed district. Ultimately, Raleigh's CII) Council must establish the district, which will require a strong demonstrallon of sup pan by merchants, property owners, and N.C. State officials.

The Hillsborough Street Partncrshlp should revie\\ state statutes and city ordinances to gam understanding of the city's authority to establish a business improvement diSirict.

Parking Corpo,·at ion The Hillsborough Street Partnership should conSider establiShing a parking corporati on to manage on­street and off-street parking in the Mea. Currently. the city contracts with a prtvate company to manage both public parking in the commercial arc;) and the parking permll program III the adjacent neighborhoods. Th is involves collectIng meter revenues. wTlling citations for VIolations, and eollecllng

Walkable Commllllilies, file and Trias and Associates

Cr·eating.4 New Vision/ol'Hillsborough SU·eel. page [J

fincs. Merchants clled dIssatIsfactIon ,\ lth thl::; arrangemenl clalllllllg th:lt II rcllwn:!' resollrces from the area while returning lllllltcd benefil.

The partnershIp could establish il parkmg corporallon ('nher as a pm ate non-protit or a public l'orporation II1;1t could take over management ofparkillg. ThIS may re'111lrL' statL' cnabllllg k'glslatlollto penmt USlllg parking rc\'enues and fines for the benefit of the dlstnci The corporallon should be part of the buslIless improvement dIstrict.

Fu nd ing the Vision Reinveming Hillsborough Street will require muillpic fundlllg partners to tackle the vaned components of the project. The Hillsborough Street Partnership should Identify both conn:nllonal and non-conventional sources to supplement bUSlllCSS improvement district and parking corporatlon rC\"( .. 'nucs. Examples or conventIonal sources lIlclude:

• Federal Surface Transportation Program EniulIlcclllCllI Funds jor bu:ycle and pedestrian Improvements .. landscaping, and histone presen'ation

• Federal Congestion r-, .. Ianagement and AIr Qu:tllty (Ct-.IAQ) funds de:.lgnatcd tor projects that would ha\'c a posllive efTect on reduclllg aIr pollutIon

• Federal Transll Adnllnlstration fundll1g ror tranSlI racllLtles such as bus pull-outs, connections to the planned regional mil system, shuttle systems and park/ride- lots

• Fcdcral and State ! lighway Safcty demonstration grants to address tbe high fn:quency of pedestnan hlls III the comdor

• NCDOT 11Ighway and tranSl1 runds

• State appropriations for N.c.. State capHal illlpro,cmcnts

• Cit)' Property Tax allocated to capLial projects

Non-conventional funding can take on many forms. Increasingly .. public LLllprO\emcnts arc bemg realized through public/private partnerships. This partnership can take many forms slLch as cOlllmuni ty development corporations, neLghborhood associatLons, "Fnends" groups .. private foundallons, direct mdustry support and involvement of mdividual citizens. In fact, most public ame!1ltLes .. whether they are parks, children's playgrounds and rountains, street trees or the restoration or bUlldmgs, arc the result of individual people getllng involved and deciding to make a dIfference. This LIl\'ol\'cment doesn't just happen, it needs to be encouraged and nOUrIShed by the HIllsborough Strect Pannership and other governmental authonties. Access to most public fundlllg sources can be enhanccd by a willingness of pnvate sector interests to invest in projects that benefit both public and private constituencies. Businesses could .... adopl" portions orthe street and take on responsibility for routine maintenance and minor physical upgrades. N.C. State could provide an annual COlllribution to Implement the proJcct and mamtam public areas. Alternatively, the university could provide in-kmd maintenance or the south side of the street that borders its property Thc Hillsborough Strect Partncrshlp should cngage the serv ices of a well-respected public finance expert to explore the intricacies of special district financlIlg.

C oordination with Utilities The Hillsborough Street corridor houses a variety of utilities including overhead electric, telephone, and cable lines as well as underground water, sewer, storm water, and gas lines. Others may include steam

Walkable Communities, fil e alld Trias alld Associates

Creating A New \'isiollfor Hillsboroug" Street. poge 1-1

pipes. tiber OptiC lmes. and C01llpUlo.:r nel\\orj,; cables. RapH.l o.:,p,IIISIOll of Ihe L'fIIllIlIllI1ICatlOI1:i llldUSlrv is plllClIlg an utlpreced.:nlcd demand all public nghb OrW<l~ •

"Pigg) bacj,;lll,g" pedestrian <llul 01 her Impro\ el1lCll13 on capII.II Pfll.lCCh I_~ ont:: o r Ihl' slngk best \\ ays 10

make major llllprO\i,'ll1elllS III a commumt~ Slde\\alj,;~, curb r.lInp'>, land!>l.:"plllg.lIghtln~ ,lilt! other amenities can be IOciuded 1Il road projects. Ull I Ity proJccts. and pn\ate COnSlnlCIlOIl In public nghls-of­way (Ll'. cable lelenslOn, high-speed fibcr optics CIC.). To accomplish tim, Ihen: <lrC sewral things that call be done.

• Contact all stale and regional agenCies, local public and pmate ulilltles that do \\ork 111 public nghts-of-way Secure their fivc -year project Itsts as well JS thelT long-mnge ptans. Then, work with them 10 make surc that the StreelS are restored 111 tile way Ih:lI complemen ls Ihe vIsion for Hillsborough Street.

• Look intemally al all capital projects. Take advantage of every opportulllty to make improvements at the time of eOnStrucllon,

• Consider combimng small projects with larger capliai proJecls as a \\a~ or sa\mg money Generally, bid pnces drop as quan ti ties increase.

Utility providers should be contacted 10 identify replacement needs and limlllg. Replaclllg: uti IllY lines usually includes man~ of the same components as road reCOllstructlon such as demolmon of pavement, excavatIOn, and reconSlmctlon ofrond\.,..ay base. The Hillsborough Street Partn,,:rsillp should coordmate with ulilit)' pro,·iders wllh the gO:11 ofsimullaneously replaclllg utilities and reconStrucllng: Hillsborough Street. That will allow cost shanng of common elements. It also \\ ill derer the ne.:d for utilities to cut into ne\\ pavement and disrupt the street to replace utilities alier the prOject IS completed

Projects of this magnitude usually require phasmg to manage costs and cash 110\\ as wdl as to nUllImize disruption 10 tr:lffic and adjacenl businesses, Part of the de!>lgn \\ork wiJllllcludi,' pha:'lllg and maintenance oftmffi\..· plans that, depending on revenue, will govcm the lime required 10 complete the project.

City's Comprehensive Plan and Developmeut Code The city'S compn.:hcnslve plan recognizes the special nature of the Hillsborough Strt'ct community through the UniversllY Village Busmess District Plan and the \\'est llillsborough Sm:11l Area Plan. The Hillsborough Street Pedestrian Business overlay-zoning district, \\hlch co\\:rs much of the area, supports the objecti\'es of the comprehensive plan to encourage n pedestnan-oriemed urban village. The pedestrian buslIless overlay district should be extended west to Sheppard Sireci.

Developers will be required to install public amenities such as sidewalks, street trees. and curb ramps. Additionally, they will be required, through zoning, to locate butldlllgs at the edge of the Street with parking locatcd behind buildings. The key is to focus on a few community pnofilles withollt creating hardships and disincentives for developers.

A number of particip:mts In the Hillsborough Street vlsionmg process observed Ihat the ci ty should strengthen liS code enforcement In the area. Stronger efforts to encoumge repairing buildings, trimming landscaping, and generally sprucing up lhe area will enhance the Image and help dr.,w customers to the area.

While the city can focus enforcement efforts on the area, perhaps the most efTecll\e way to give the area a facclift is through the volunteer efforts or businesses and property owners along the street. Organized

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Creating A New Vision/or I Iillsborough Street, page 15

efforts to periodically clean. pick up trash, and embelhsh the I:mdscape would budd pnde In the arc", and improve its appearance. Gramt! removal should be a lOp pnonl) since 1\ \\ ililene.! 10 muillply rapidly without immediate attention.

ShorHcrm Str:lIeg ies The Hillsborough Street Partnership should Initlatc and promolc an allnual program to make small. visible improvements. Examples include sidewalk replacement, community clean-up, annual tree planting, etc. This is an excellent way to create momentum and community support. SCI a goal. for example, of adding 100 trees per year to key locations for a penod often years. Since funds are IlITllted, you will wal1tlO be very careful about the projects you select. There arc several things to consider"

• Give priority to locations used by the greatest number of people, the elderl)'. those wilh disabilities and prOVide access to tranSl1.

• ConSider giving preferencc to requests frolll neIghborhood or large commercial and employmcnl groups, especially those that meet other priori lIes such as providing an increased \\ alking. transit and bic)'clmg.

• Evaluate construction options. Consider having Cit)' crews do work requested by stakeholders to provide fast customer service whilc bIdding out some of the staff generated projects.

Ongoing Care Part of Ihe lure of suburban shopping centers resides in the consistent level of common area maintenance and predictable operntion of facilities. These developments prosper from a coordlluued effort 10 promote themselves through advertising and staging special events to draw customers. Hillsborough Street, as a significant activity center, will benefit from SImilar efforts 10 coordinate upkeep. promote Its amenities, and 10 organize special events thai will introduce new users 10 Ihe area.

DES IGN GUlDELI ES AND POLICIES

Implemcntation also requires well-articulated and thought-out design gUldcllOCS and poilcies for setting pnoril1es. The workshop process produced a consensus on a number of significant design issues and prionties for projects that the Hillsborough Street stakeholders want to see happen.

Partlcipants also suggested many sollllions to the problems identified. In some cases, the solutions were for specific locations: in others. the solutions were ideas that should be 1l11plcmented on a community­wide basis.

The following arc design issues followed by recommended deSIgn gUldelines and policies identified through the workshop and study process. The intent is to make sure that the communities' desire and values for a livable community are automatically included III all public and privale projects and programs. They will only occur, however, if the proper guideli nes and policies arc in place .

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Creating A New Fisionfor Hillsborough Street, page 16

Street Traffic

Issues and Concerns ,. Lack o/lIml lalles and high trafJie gell(!ralOr.\ alol/g fhe corridOl" l'IICUl/r,'!;eS drin'rs Iu change

IOlles ji'eqllelJlly cUI/sillg (l "slaIOIll" eilecl through Ihe ('orridor j... Vehicle speech, along Hillsborollgh Streel are iI/compatible Inth the pet/t,.qrilllinawre oJ adjacelll

de\'e/opmell/ ;... PedeSlri(l1l crossiJlg aClil'if)' i~' heavy bill difJicIIII res/dllllg ill ji'equelll pedeslri(ll/ hirs by

allloll/obiles

Recommendations

• Phase 111 the recommended street cross section with roundaboUlS to smooth traffic flows along Hill sborough Street and facilllate Turning movements,

• Reduce the speed IlIllllto 25 mph throughout the corridor

• Police should work with commulllty groups on enforcement speed ltmlls at targeted locations.

Pa r king

Issues and Concerns >- Ulliversily and bllsiness IIses compete/or Oll-Slreet alld o./f.Hreer parkillg :;.... Parkillg illlrlldes illto adjacenr residelliiaineighborhoods r Parkil/g SIlPP~\' seellls cOllslrailled due 10 III/coordillated olwer:.hip alld poor arral/gemelll

Reconunendaliolls

• Retain eXlstlllg parkmg as much as possible • Add parking on side meets where appropriate • Continue to restrict parking in adjacent neighborhoods as needed and step up enforcement • Beller define areas 111 transitIOn zones where general parklllg can be added • Off street parkmg should be attractive, easy to find, ami easy to use • Management of parking should come under the Hillsborough Street PartnershIp through a

bUSiness improvement district or a parking corporation • University parkmg, where lost, should be relocated or replaced • No off-street surface parking should be allowed adjacent 10 Hillsborough Streel

LO:lding Zo nes

Issues and Concerns ~ Loading =ones are roo narrow cal/sing Irflcks 10 overlap rhe olIIside IrGl'ellalle ):> Loading =ones become toO crowded during peak rimes ):> Trllcks dwell ill loading =olles for extended lime periods while drivers make delil'eries 10 nIulliple

businesses

Recommendations • Recommended cross-section will provide ample room for tnlcks within loading zones • Meet with distribution companies to discuss issues related to local deliveries • Consider restricting loading activities to non-peak times

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Creating A New \ 'isiolljor Hillsborough Street, page! 7

• Consider e,;tabllslung tllne IUl1l!:. for Illadlllg zom: ... 10 cncourag<.' higher turnO'er • Look for opponullltlC:' to 11I11\~' IOJ-dm!; 10 11ll' bad;" ofblllldtng:.

Cro:,:, l\alk:,

Issues and Com'ems ;.... Pedeslrial/s crossillg side streets C(1I/IIOI set' signal placemelll at ,H'I'em/lll/('I'S£'uioIlS ;.... Pedeslriall call bl/flOIIS at IIUllly locmiolls are hard to jind alill call respol/St! lillie is excessin' ;... MallY pedeslI"iall p(lfhsjrolllihe IIIlil'ersilX campus 10 Hillsborough Strt:{'/ do 1I0t align '1'itll

crosslmlks

Recommendations

• Lane reduction and bulb-outs at InterSeClions will shorten crossing dislances • At signalized Intersec tions. replace Sp:Ul \\ Ife mounted signals \\ Ith sign:lh; mounted on poles and

mast arms for bellcr pedestrian visibility

• Add pedestrian heads at signalized IIltersections • Remo\e unnecessary call bUlions • Retime signals to shon (60 second) cycle lengths to favor pedestrians

S id CWl.llks

Issucs and Concems r Man,l' existing sidel\'{llks are ill poor shape ;.... The sidell·al/.; syStem is /00 1I(1ITOIl ill 1IIt/lly locmlolls ;.. It is difJiclllt to wal/.; be/llecn key pedestrian celller,\' (i.e. housillg. celllral ,"CSt. campus.

Call/eroll I 'iI/age. t'IC). ;.... Some sidellalks are 1101 {lccl!sSihJeior perSOIlS 111111 disabilities dl/(' to stc:ep cros:> slopes, /fl/el'ell

pal'emellt, alld illlI"/lS;On ojlrajJie sigl/al COI/(rol boxes inlO rlu· llalklllg par"

Recommendations

• EXIsting sidewalks: Target funds to fix Sidewalks that present the most s(:\ere barriers. • l'\C\\ sldcwalks: Replace undersized Sidewalks 1!l areas of gn:alcst use. • GI\'C pnont~ to provldmg access for reSidents and workers to Iransit. the ;-\C Statl' campus, and

shopping areas, • Work wlth seniors and people with dIsabilities to Identify priorny loe;ltions for reworking the

most dIfficult areas. • Place trecs and tree grates in bulb outS between on-street parkmg bays • The Strcetscape Plan for University Village on Hillsborough Street should be implemented and

maliltained more aggressively • Sidewalks in the commercial area should be a lllllllmum of founeen fcet wide to accommodate

sidewalk cafes and allow four to six people to walk side-by-side • All sidewalks should be built or rebuilt to meet ADA (Americans \\ Ith Disabilities Act)

standards. • Sidewalks should contlllUe across driveways; driveways should be ramp type; dnveway widths

should bc kept to a minimum (do not allow the entlfe front ofa bulldmg to be a continuous driveway)

• Relocate traffic slgnal control boxes outside of the pedestrian zone

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Creating A New Vision for Hillsborough Street, page IS

Landscapin g

Issues and Concerns ;... Existing trees poor~r mailltailled. cOllcerncd abolll mainlenallce ojji/lure trees >- Lal/dscaping is disorgal/i::ed >- Sa/et), is crilieal - currel1l~\" lrees alld shrubs create issues 0/ personal secllri!.,' (Jlld \ 'isibility jor

mOlOriSlS and pedeslrial/s, ~ Some landscaping has grow/I Ol/t 0/ bOl/l/ds and hides lIolelVonh," buildings {lild "iell's

Recommendations

• Trees should be 11mbed up 10 at least eight feet (ten on comers) \0 ensure good vlsibilllY for motorists and pedestrians,

• Shrubs should be low-growJ!1g vaneties. • Mmlllllzes sight obstructions. • Promotes personal security (doesn't create places to hIde: keeps an open feeling where a person

can be seen), • Annual tree planting and mamtenance program should be gl\'en hIgh pnont)' • ConSIder repJacmg the high hedge III front of the Chancellor's resIdence wlIh a low bnck wall.

decorative iron fence, and gates similar to the Governor's Mansion so that the architeclllre of the buildIng can be enjoyed from the street.

• Use landscapIng to create atlractive edges and to channel pedestrians to appropriate street crossings

• Adhere consistently 10 RaleIgh's streeltrec master plan and UnivcrsllY Village Streetscape Plan.

Creating a " tid y" vill age

Issues and Concerns ;.... Streets & sidewalk are IIOt sll'ept oftell enough ;.... Liller is a problem along the Sireel >- SOllie buildings are poorly mail/wined ,.. Public pay pholles are broken ~ Ulili!.\" poles are ill poor cOlldilioll alld lraffie sigllal COl/trol boxes are lillered Willi graffiti

Recommendations

• Conduct a major volunteer Hillsborough Street clean up within six weeks WIth addItional clean-up programs scheduled annually

• Street & sidewalk sweeping should be given a priority mlhe city's annual budget. • NC State should continue to malntam the south side of the street bordering its property • Liller pick-up - initiate clean-up events to involve volunteers in liller pick-Up. Organize

businesses to encourage them to clean the sidewalks and public spaces around their businesses. • Provide an annual awards program for the best mamtamed edges and entries • Create an Inventory of conditions to be repaired within nine months

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Creating A New Vision/or Hillsborough Street, paqe J 9

Issues and Conccm~

,. Need a 1-e(ISOII 10 cOllie 10 Hiflsboro/lglJ 5,reet to shop Y Lack a/purpose jill so'meg)' to keep existing businesses & alfrac( nell olle~

,. Hold 01/ to key bl/sinesses like ,"e hardware store, shoe repair alld grocer ;;.. Need to prOll/ote tile area as (/ specialn' rewil district

Recommendations

• Creale an atmosphcre to support small home grown businesses • Reqlllfc any chain stores to comply with your vision, not thcirs • Reqll1rc buildlllgs to from sIdewalk with parklllg behmd building - sIde parking may bc okay

if designed properly - never in from • Consistent Hours - develop consensus on hours of operation for retai l • Develop village marketing plan; promote area to public (e,g, hold spcclal e\'ents) and to

potential retailers • Encourage sidewalk cafes by creating space on sidewalks; also, examine zoning codes and

talk to restaurant owners to determIne if there are barriers to Sidewalk cafes that can be eliminated

• Install benches, Itghting. shade, gateways wherever possible along the route • Create amenities such as drinkmg fountains, public restroolllS, and shady restlllg SpOtS • Prov ide low-interest loans to businesses in corc area (e,g, loans to rehab fronts ofbluldings) • Keep "old Raleigh" look • Develop a local theme for the relail dlSlflct; consider using art, possibly something that could

be built 11110 the sidewalks - e,g, pavement markings, logos, unique street signs. and coloring - whatcver. Idca is to enhancc a sense of place. an identity

• Market as a special district

Zo nin g

Issues and Concems ;;.. The CI/rrellf ;ollillg ordinance prol'ides tlie framework to achiel'e tlie l'isiOI/ bill 100 11/(/1/)"

exceptiolls ill implementation have left gaps ill del'e/opmel/f quality

Recommendations

• Provide more consistent application orthe Hil lsborough Street Pedestrian Business overlay district

• Expand lhe overlay district west to Sbepbard Street • Look for opportunities to update zoning code and refine standards as they apply 10 the area. • Remove barriers to development; deve lop incentives to accomplish community goals

Walkable Commlln ities. f llc (llId Trias alld Associates

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Creating A New Vision/or Hillsborough Street, page 20

I)cdcstria n Li ghting

Issues and Concems

>- Lack o/mailllenance ojsrreerlights leQl'es dark spors Gild gil'{!.I' III/kempt/ook >- Lack o/lighting creates shadows alld dark spots thaI make certaill (/reasjt!I!/lIlIsale ,. High. ,'ellicli/ar lightillg does /10/ create all jlll'iting allI/osphere for p<'deJlritillS

Recommendations

• Replace bumed out street lamps quick ly to nHlintain consistent light levels • Expand pedestrian lighting program - use pedestrian scale lamps III key dc\elopment areas. • Install specially lighting in retail areas and in areas where addillonalltghting IS needed to

enhance personal securi ty • Ligh ti ng should meet design standards suggested In streetscapc plan

Bicycling ami Walk ing C onnect ions

Issues and Concems

>- Bicycling is difficult alollg HilJsborough SII·eet, key links 10 Ihe IInirer:sity campus, parks alld other deslillatiolls are missing

>- Gaps ill walking romes betweell Hillsborough Slreet, Cameroll Village, al/d otlier pedestriall oriemed areas Ileal' HilJsboroligh Streel

Recommendations

• Bicyclists will have riding space III the roadway olltside of the design,lted dm·ing lanes • Install bicycle-parking racks throughout the corridor In general, install t\\"o to three racks per

block-face where there IS retail frontage. Racks should have no monng parb. suppon the bicycle frame and should be located so as not to mterfere with pedestrian mo\ement

• Improve sidewalk connections to Cameron Village • Develop walking routes to the new Triangle Transit Authority regional rail station

The Creating A Vision community workshops would not have been possible without the generous contribution of time and talents, goods and sen'ices of the following individuals and organ izations:

Planning COInmitlee Smedes York. Honorory Chair Nina Szlosberg, Chair Amanda Arnold Carol Apperson Paul Blankenship lenny Chang George Chapman Kevin Coggins Melanic Copley Rene Cummins Carl Dawson

Bob Geary Tyler Glover Jeri and Mike Gray Tim Harrison Pam Hartley Mike Ham'ood Tim Harrison Mitchell Hazouri Mark Healy Allyson Hobbs Art Howard Mary Humphrey Beckton James

Walkable Commullities, Inc and Trias and Associates

Kevin & Stacy Jennings Ed lohnson Jr. Michael Layne Andrew Leager Charles Leffler Ken Maness Justin McCurry Raj Mirchandani George Moore Tony Morris Bob Mosher Sarah Noell Taylor Nute

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Creating A New Visiollfor Hillsborough Street, page 2 J

Bill Padgel1 \\'ill Padgett Reid Parker Elizabeth Parsons Sonnya Quinn Cathy Reeve

Communit\' Contributors AAA Electric Ads Infinitum AV Metro Balloons and Flowers Boholl Corporation i\ladiSOIi Bullard, Alfornc~ Brother's Pizza

Sallie Ricks Shislm Rival Mary Powers Ryan Pat Ryan Shoshana Serxner Russ Stephenson

Comm unication Specialists Company East Village Bar and Grill Envirotck Fairmont Methodist Church Frazier'S Restaurant Holy Trinity Lutheran Church Humphrey Creative Company

Media Sponsors WRAL-TV The News and Observer

Community Design Team

Juanita Shcaro.:r-S\\ IIlk Bell Taylor Laura \\"hilfic!d BJrbara \\"iedcm:lI1n Tom Willis :\lary \\"ohz

Kinkos, Hillsborough Street i\lanhalfan Bagel Compan~ Mitch's Tavern and 'litdlClI H:lzouri NAPRO Communications. [nco North Carolin a Department of Transportation NC State Universily Oining SrniCl' NC State Transportalion Sen ices Piedmont Litho I>rinlers Ph otography Ink Rath skcll{'r R{'stauranl Tlillnis Root The Velvet Cloak Inn Typesteties B:lrbara Wirdemann desig n West Raleigh I}n:sb~" t{·r i:ln Churrh York Properties

Jay Bennett , NC Department of Transporta llOn, Roadway DesIgn Michael Harwood. AlA. NC Slale University Architect Ed Johnson , City of Raleigh Transportat ion ServIces Engllleer Michael Layne, ASLA Legacyworks - Community Participation In

Environmental DesIgn & Landscape Sculpture, Research· EducatIon • Design Ken Malllless, City of Raleigh Planning Department Tony Morris , Delineation Architecture StudiOS, University Park Homeowner Bob Mosher, City of Raleigh Planning Department Tom Norman, NC Department of Transportation, BIcycle and Pedestnan Transporta tion Danny Pleasants, Director, Orlando Department ofTransponalion (Raleigh native) Sallie Ricks, NCSU Landscape Architect, University Park Homeowner Sam Reynolds , ASLA, Reynolds and Jewel Landscape Architecture Russ Stephenson , AlA, Smart and Partners Architecture Christy Turner, ASLA. Landscape DeSign, NCSU

Walkable Communities. fllc GIld 1has and Associates