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TO:

THROUGH:
FROM:
SUBJECT:
ISSUE:
FOR AGENCY MEETING OF:
AGENDA ITEM NO.:
AN RENEWA_L AGENCY BOARD


J HN H. WALES, DIRECTOR
BAN DEVELOPMENT DEPARTMENT
January 9, 2012
4.3 (b)
MASTER PLAN FOR THE MINTO ISLAND BICYCLE AND
PEDESTRIAN BRIDGE AND RELATED INFRASTRUCTURE
Shall the Agency Board adopt the attached Minto Island Bicycle and Pedestrian Bridge
and Trail Master Plan to formalize the project scope, summarize supporting actions, and
strengthen the Agency's ability to obtain external funding for the Minto Island Bicycle and
Pedestrian Bridge and Trail?
RECOMMENDATION:
Staff recommends the Agency Board adopt the attached Minto Island Bicycle and
Pedestrian Bridge (Bridge) and Trail (Trail) Master Plan (Master Plan) to formalize the
project scope, summarize supporting actions, and strengthen the Agency's ability to obtain
external funding for the Bridge and Trail.
BACKGROUND:
Over the last several years, the City and Urban Renewal Agency (Agency) have been
working towards the goal of constructing a pedestrian bridge and trail system to connect
Riverfront Park with Minto Brown Island Park. The Bridge and Trail are located in two
Urban Renewal Areas; the South Waterfront and Riverfront Downtown Urban Renewal
Areas (URA) (Attachment A). The Bridge component of the project is included as a
project in the Riverfront Downtown Urban Renewal Area Plan, Section 1101. The Trail
component is included as a project in the South Waterfront Urban Renewal Plan, Section
V.A.2.
The Bridge, together with the T('ail, will improve pedestrian and bicycle options, access,
and safety by providing an off-street trail network between South Salem, downtown, and
West Salem. The resulting expanse of trails and parkland will enhance commuting and
recreation opportunities, improve resident health and well-being, attract recreational
tourism, and contribute to new investment in downtown.
Since 2007, significant City and Agency resources have been expended to prepare for the
Bridge and Trail project and to the Union Street Railroad Bridge conversion.
Minto Bridge Master Plan Page 1 of3 January 9, 2012
Several plans and studies were completed to support development of the Minto Bridge
and Trail and an extensive public outreach campaign was initiated to obtain feedback on
preliminary Bridge design concepts.
The City and Agency are now preparing to initiate the next phase of design, engineering,
and permitting of the Bridge and Trail and will continue to pursue grant funding for design
and construction. To articulate the scope of the projects and better position the City and
Agency for future grant applications, the Minto Island Bicycle and Pedestrian Bridge and
Trail Master Plan (Attachment B) has been created.
FACTS AND FINDINGS:
The Master Plan provides a summary of the Bridge and Trail project and actions
completed to date, including funding, planning and public outreach, project purpose and
goals, supporting plans and policies, schedule, and project benefits. A summary of key
elements is included below.
Actions to Date
In 2007, Boise Cascade, LLC discontinued operation of their downtown paper
manufacturing facilities, leaving 13 acres downtown and 310 acres on the northern tip of
Minto Island available. Boise Cascade, LLC received a Letter of No Further Action from
the Department of Environmental Quality (DEQ), and on December 17, 2010, executed an
agreement with the City to allow construction of the Bridge landing and connecting Trail
from the privately owned portion of Minto Island to Minto Brown Island Park.
In 2008, OBEC Consulting Engineers completed a bridge design concept study. In the
concept design, the City considered alternatives including long and short bridge spans as
well as high- and low-level bridge crossings of the Slough. On October 18, 2010, Council
approved a tied arch bridge design concept with a 14-foot wide deck which provides a low
profile, clear span of the Willamette Slough.
On August 26, 2011, the Executive Director of the Agency signed an agreement with the
owners of the Willamette Queen Sternwheeler to accommodate their business loss,
assuming the low span tied arch bridge is constructed across the Willamette Slough,
blocking the Sternwheelers right to commercial navigation of the Slough.
Public Outreach and Involvement
In winter 2008, a public outreach campaign was initiated to obtain feedback on the
conceptual bridge design options prepared by OBEC. Outreach included presentations to
area stakeholders, including the Salem Parks and Recreation Advisory Board, Salem-
Keizer Transportation Advisory Committee, affected neighborhood associations, Salem
Bicycle Transportation Alliance, Go Downtown Salem, neighborhood liaisons city-wide, the
Salem Bike Club, and the Governor's Economic Revitalization Team. Input was also
solicited through an online survey, City newsletters, website, and a Council work session.
Minto Bridge Master Plan Page 2 of3 January 9, 2012
There is broad public support for the Bridge and adjoining Trail. A local non-profit, The
Friends of Two Bridges (Friends), was formed in 2006 to support the Union Street
Railroad Bridge conversion and construction of the Minto Bridge and Trail, including
pursuing grants, volunteer labor, and public outreach. Several other key stakeholders
have expressed strong support for the project, including the Salem Audubon Society,
Oregon Parks and Recreation, and the Downtown Advisory Board. A 2008 funding
request for the Bridge and Trail generated over 50 letters and 20 emails of support for the
project from individuals, private businesses, nonprofit organizations and public officials. In
December 2008, a City initiated survey to solicit feedback on direction of the project
generated more than 90 percent approval from residents.
The Bridge and Trail have been identified by business leaders and organizations as
central to contributing to the vibrancy of Salem's downtown. Vision 2020 Action Team
leaders, including Salem Hospital, Willamette University, Travel Salem, Salem Chamber of
Commerce, Salem Keizer Transit (Cherriots), and the former downtown Economic
Improvement District, Go Downtown Salem, have championed the project.
Supporting Plans and Policies
The Bridge and a connecting Trail to Minto Brown Island Park is an adopted FY 11-12
Council goal and is identified in several supporting plans and policies, including the
Riverfront Downtown Urban Renewal Plan, South Waterfront Urban Renewal Plan,
Comprehensive Park System's Master Plan, the Salem Transportation Plan, 2011 -2035
Regional Transportation Systems Plan, Salem's Vision 2020 Action Plan, and the Urban
Land Institute's 2006 'Strategies for Redevelopment of the Downtown Boise Cascade Site'
study. In 2010, University of Oregon students participating in the Sustainable Cities
Program cited the importance of increasing access to Salem's riverfront and adjacent
parks, envisioning new housing and commercial uses connected by trails to the Union
Street Railroad Bridge, Riverfront Park, and Minto Brown Island Park. The Bridge and
Trail are consistent with the Willamette River Legacy Program which aimed to improve
access to the Willamette River, including by expanding parks in the Willamette Greenway.
Next Steps
The above actions are summarized in the Minto Island Bicycle and Pedestrian Bridge and
Trail Master Plan for the Agency's consideration tonight. Staff will continue to pursue
design and permitting of the Bridge, beginning with the initiation of concept design in
January, 2012. Assuming full funding for the Bridge and Trail, the Agency is prepared to
start construction of both project components by 2014. Staff will continue to pursue
additional funding for the projects, including funding for construction of the Bridge.
Attachment A: Map
Attachment B: Master Plan
Report Prepared By: Annie Gorski, Project Manager
G:\URBANDEV\ADMINISTRATION\FINAL COUNCIL STAFF REPORTS\2012\JAN 9\MINTO TRAIL MASTER PLAN\AGENCY
_MINTOMASTERPLAN_JAN92012.DOCX
Minto Bridge Master Plan Page 3 of3 January 9, 2012
Public Worlao Department
Pedestrian Bridge Urban Renewal Areas
>::= Bridge NAME
=Trail
-Contours
0 RI VERFRONT DOWNTOWN
0 SOUTH WATERFRONT
parks
water __polys
Minto Island Bicycle and Pedestrian
Bridge and Trail
Legend
Pedestri an Bridge
~ B r i d g e
=== Trail
- Preferred Route
~ Park Trails
ATIACHMENT A
MINTO ISLAND PEDESTRIAN BRIDGE AND TRAIL
Connecting Three Parks and Over 20 Miles of Trails
MASTER PLAN
JANUARY 9, 2012
ATTACHMENT B
Executive Summary
The City of Salem and Salem's Urban Renewal Agency (Agency) have been working toward a long-standing community vision of
connecting three major urban parks, and more than twenty miles of trails via two pedestrian bridges over the Willamette River . In
2009, part of this goal was realized with the renovation of the historic Union Street Railroad Bridge for bicycle and pedestrian travel,
connecting West Salem's Wallace Marine Park with downtown's Riverfront Park. Completion of the Minto Island Bicycle and
Pedestrian Bridge (Bridge) and adjoining multimodal trail (Trail) is the last critical link.
Since 2007, the City and Agency have invested more than $100,000 to prepare for the Bridge and Trail and more than $1 ,200,000 to
support the Union Street Railroad Bridge conversion. In 2008, a concept-design study considered four Bridge alternatives. In
October 2010, City Council approved a tied arch Bridge design concept with a 14 foot wide deck. In December 2010, an easement
agreement was executed to allow construction of the Trail and Bridge landing across the privately-owned Minto Island. In 2011, an
agreement was reached to secure access across the Willamette Slough. The City and Agency are now preparing to initiate the next
phase of design, engineering, and permitting of both project components and will continue to pursue grant funding for design and
construction.
Project Highlights:
Low profile, tied arch bridge with 350 foot long span, connecting Riverfront
Park with Minto Island
3850 foot linear, 12-foot wide trail connecting Minto Brown Island Park with
privately owned Minto Island and the bridge landing
Bridge and trail will connect over 1 000 acres of Parks and 20 miles of trails
Two Urban Renewal Areas support the project: Riverfront Downtown URA
(Bridge) and South Waterfront URA (Trai l)
Introduction
Over the last three years significant work has been completed to prepare for the
Bridge and Trail and in January, 2012 will begin conceptual design and permitting of
the project. Fund raising and community outreach will begin in 2012 and continue
through project construction. To formalize the scope of the project, the Minto Island Pedestrian Bridge and Trail Master Plan has
been created.
Traveling north, the Trail will connect the Bridge to existing paved trails in downtown' s Riverfront Park and the Union Street Railroad
Bridge, with connection to Wallace Marine Park and the Monmouth Bikeway and linking employment in the West Salem industrial
district and commercial district to downtown and West Salem transit centers. Traveling south, the Trail will connect to existing Minto
Brown Island Park paved trails (including a preferred route for year-round commuting), Homestead and River Roads, providing a
Minto Bridge and Trail Master Plan Page 2
safer, scenic route for commuting between West Salem, South Salem, and Independence, with access to transit in downtown and
West Salem.
Funding
The Bridge and Trail are located in two urban renewal areas (URAs); the South Waterfront URA (Trail location) and Riverfront-
Downtown URA (Bridge location). The adopted FY 11-12 Riverfront-Downtown URA budget includes $749,000 for Bridge design
and permitting; additional funding will be allocated for the Bridge in subsequent fiscal years. The South Waterfront URA does not
have sufficient funding to design and construct the Trail. The connection between downtown and Minto Brown Island Park relies on
both elements. Grant funding will allow the Trail component of the project to keep pace with the Bridge design and permitting and
ensure that a full transportation connection is available when the Bridge is constructed.
Planning and Outreach
There is broad public support for the Bridge and adjoining Trai l. A local non-profit, The Friends of Two Bridges (Friends), was formed
in 2006 to support the Union Street Railroad Bridge conversion and construction of the Minto Bridge and Trail , including pursuing
grants, volunteer labor, and public outreach. Several other key stakeholders have expressed strong support for the project, including
Salem Audubon Society, Oregon Parks and Recreation, the Downtown Advisory Board, and the Vision 2020 Bicycle and Pedestrian
Workgroup. A 2008 funding request for the Bridge and Trail generated over 50 letters and 20 emails of support for the project from
individuals, private businesses, nonprofit organizations and public officials. In December 2008, a City initiated survey to solicit
feedback on direction of the project generated more than 90 percent approval from residents. In the
winter of 2008-2009, an outreach strategy was implemented to obtain feedback on the conceptual
bridge design alternatives. Feedback was obtained from affected neighborhood associations,
advisory boards, interest groups, and others, including:
Salem Parks and Recreation Advisory Board
Vision 2020 Action Team
Vision 2020 Bicycle and Pedestrian Workgroup
City Neighborhood Liaisons
SCAN Neighborhood Association
Salem Bicycle Transportation Alliance
Croisan - llahee Neighborhood Association
CAN-Do Neighborhood Association
Grant Neighborhood Association
South Salem Neighborhood Association
Go Downtown Salem Board of Directors
Downtown Advisory Board
Salem Convention and Visitors Association Board
Salem Bicycle Club
Minto Bridge and Trail Master Plan Page3
Briefings were also initiated with Boise Cascade, LLC, Salem Audubon Society, Oregon Parks and Recreation, Willamette University,
Salem Hospital, Oregon Department of Fish and Wildlife, A. C. Gilbert House, the Riverfront Park Carousel Board, and local running
and cycling groups.
The Bridge and Trail have been identified by business leaders and organizations as central to contributing to the vibrancy of Salem' s
downtown. Vision 2020 Action Team leaders, including Salem Hospital, Willamette University, Travel Salem, Chamber of
Commerce, Salem Keizer Transit (Cherriots), and the former downtown Economic Improvement District, Go Downtown Salem, have
championed the project.
Outreach will continue on an ongoing basis through project construction. The City and Agency will continue to coordinate efforts
closely with the stakeholders identified above, the Friends of Two Bridges, and other interested parties. Several new methods for
disseminating information to the public will be explored.
Project Purpose and Goals
The Bridge, together with the Trail, will improve pedestrian and bicycle options, access,
and safety by providing an off-street trail network between South Salem, downtown, and
West Salem for a variety of users. This new welcoming trail network will connect
residents to public transit, schools, entertainment, recreation, and major employment via
parks, natural areas, and waterways. The resulting expanse of trails and parkland will
enhance commuting and recreation opportunities, improve resident health and well -
being, attract recreational tourism, and contribute to new investment in downtown. The
Bridge and Trail will enhance the Willamette Valley Scenic Bikeway, a state designated
bike route, by providing a safer scenic route, with minimal automobile conflict, compared
with the current route.
Supporting Plans and Policies
The Minto Bridge and Trail are an adopted FY 11-12 Council goal and identified in several supporting plans and policies, including
the Riverfront Downtown Urban Renewal Area Plan, South Waterfront Urban Renewal Area Plan, Comprehensive Park System
Master Plan, the Salem Transportation System Plan (TSP), 2011 - 2035 Regional TSP, Salem Vision 2020 Action Plan, and the
Urban Land Institute's 2006 ' Strategies for Redevelopment of the Downtown Boise Cascade Site' study. In 2010, University of
Oregon students participating in the Sustainable Cities Program cited the importance of increasing access to Salem's riverfront and
adjacent parks, envisioning new housing and commercial uses connected by trails to the Union Street Railroad Bridge, Riverfront
Park, and Minto Park. The Trail and Bridge are consistent with the Willamette River Legacy Program which aims to improve access
to the Willamette River, including by expanding parks in the Willamette Greenway.
Minto Bridge and Trail Master Plan Page4
Relevant Legal Agreements
In 2007, Boise Cascade, LLC discontinued operation of their downtown paper manufacturing facilities, leaving 13 acres downtown
and 310 acres on the northern tip of Minto Island available. Boise Cascade, LLC received a Letter of No Further Action from the
Department of Environmental Qual ity (DEQ), and in 2010, formalized an agreement with the City to allow construction of the Bridge
landing and Trail across Minto Island. In August 2011, an agreement was reached with the owners of the Willamette Queen
Sternwheeler to accommodate thei r business loss, assuming the low span tied arch bridge is constructed across the Willamette
Slough, blocking the Sternwheeler's right to commercial navigation of the Slough.
Master Plan Summary
Bridge
On October 18, 2010, the City Council approved
a tied arch bridge design concept (Alternative L-1)
with a 14-foot wide deck which provides a low
profile, 600 foot long clear span of the Willamette
Slough. The design assumes connecting with the
existing paved path in Riverfront Park, to the
north of the Eco Earth ball. The proposed
connection on Minto Island will land adjacent to
the existing gravel service road and fol low that
alignment on top of the berm to the existing
paved path approximately 3800 linear feet south
at Minto Brown Island Park. These design
assumptions will be reviewed by the selected
consultant in early 2012. Additional designs may
be considered if they provide significant cost or
time savings while maintaining the overall intent
of the project.
Minto Bridge and Trail Master Plan PageS
Trail
CONCEPT DRAWINGS
FOR
MINTO ISLAND MULTIMODAL TRAIL
VICINITY MAP
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Minto Bridge and Trail Master Plan
SALEM, MARION COUNTY, OREGON
NORTH OF MINTO BROWN ISLAND PARK
OCTOBER 2011
CITY OF SALEM
MINTO ISLAND TRAIL
DRAWING INDEX:
GENERAl. DRAWINGS:
<i:O 01 COVER SHUT
CIVIL DRAWINGS:
C.O.Ql TYPICAL SECTION AND DESIGN APPROACH SUMMARY
C-0.03 VIEWING AREA PlAN ENLARGEMENT
C-1 01 PROPOSED TRAIL AND PROFILE 1D-OO TO 25- 00
C:-1 .03 PROPOSED TRAIL AND PROFILE 25- 00 TO 40- 00
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C-2.01 CROSS SECTIONS
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MINTO ISLAND MULTIMODAL TRAIL
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MINTO ISLAND MULTIMODAL TRAIL
CITY OF SALEM
PLAN AND PROFILE IC-1 .05
40+00 TO 48+ 45.64
MINTO ISLAND TRAIL
Minto Bridge and Trail Master Plan Page 10
Implementation
Schedule
Months
Preliminary
Engineering
Environmental
Permitting
Fmal Design&:
Bidding
Bridge
Construction
In Water Work
(Session I)
In Water Work
(Session2)
Yearl Year2 Year3 Year4 Years
*Schedule assumes construction method requiring two in water work periods. This may not be required.
Project Benefits
Transportation Connectivity
The Bridge and adjoining trail will improve Salem's existing transit, bicycle, and pedestrian network for all residents by expanding
access to transportation networks to and from downtown. By connecting major employment centers, schools, parks, commercial
districts, and residential neighborhoods via a new off-street trail network, adjacent to public transit, this project contributes to the
development of a seamless multimodal transportation system.
The Bridge and resulting connections provide for multimodal transportation options by "funneling" users into downtown's core within
close proximity to local, regional, and national transportation modes, including Amtrak train, Greyhound bus, and Cherriots local and
regional bus service, and east-west and north-south bike routes. Connection to key transportation routes is avai lable at the southern
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and western terminus of the trail system, including the Willamette Valley Scenic Bikeway and West Salem transit center with local
and regional routes (McMinnville and Newberg) and the Monmouth Bikeway.
The Bridge and resulting connections represent Salem's first off-street commuter route, connecting residences with major
employment. Daily travel between South Salem, downtown, and West Salem represents a significant number of short (less than 5
miles) vehicle trips. In 2005, 33,336 employees resided within% mile of downtown and 125,000 vehicles per day traveled through
downtown on the Marion and Center Street bridges (2005, COG). By providing a welcoming, accessible, scenic bicycle/ pedestrian
connection, it is expected a variety of users will access all, or a portion, of the network for their
commute.
Economic Development
Connecting three large urban parks along Salem's waterfront with more than 20 miles of trails
is expected to attract additional investment in downtown housing and commercial development.
In June 2011, there were approximately 121 housing units in downtown (Salem Downtown
Core Inventory, June 2011 ); additional resources are planned to incent a variety of housing
types at a mix of income levels. Other investments are planned, or underway, which increase
the density of commercial and residential development downtown and strengthen the viability
of the Bridge and Trail for commuting and recreation, including:
Redevelopment of the former Boise Cascade paper manufacturing facility into a vibrant
mixed use center; up to 100 apartments are planned in its first phase. The site is
located just south of the Bridge landing, adjacent to Riverfront Park.
Redevelopment south of Mission Street; zoning changes are envisioned to encourage
higher density commercial development and increase connections to Riverfront and
Minto Brown Island Park
Redevelopment of north downtown, including analysis of transportation circulation,
housing needs, and related information to guide investments.
The increase in recreational opportunities resulting from the Bridge and Trai l project are expected to increase demand for local
bicycle and running equipment, retail, services, and restaurants in close proximity to the Trail. Greater demand for recreational
events, such as marathons and bike races, increases opportunity for recreational tourism and related employment and investment.
Given the Trail's proximity to downtown, downtown businesses are expected to benefit, just as the designation of the Willamette
Valley Scenic Bikeway through downtown has had a positive impact.
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1.!.
Environmental Sustainability
The Bridge and Trail build on the City's commitment to sustainability by restoring Boise Cascade's former landfill on Minto Island to a
viable bicycle/pedestrian transportation corridor and natural area. The Trail is located in the Willamette Greenway and FEMA
Floodway, so particular effort will be made to include environmentally friendly materials and methods, including: balance of soil
fill/removal; inclusion of native plants and trees; and solar powered lights, where appropriate .
L .,. :v.MI'JJ - The Bridge and Trail are expected to contribute to reductions in vehicle mi les traveled (VMT)
and overall Greenhouse Gas (GHG) emissions by providing a safe and enjoyable alternative
to automobile travel between South Salem, downtown, and West Salem. In 2007, Salem's
bicycle commute mode split was 1.4 percent, an increase from 2000 (American Community
Survey, 2005-2007). Data from the 2011 bicycle counts and Statewide Bike Commute
Challenge illustrate that bike commuting is growing. Based on data from a 2008 survey, it is
expected up to 14 percent of residents will use the route for commuting, representing up to
21,700 non-automobile commuters. Significant gains in ridership are expected given the
length of the planned Trail network (more than 20 miles), the dense population residing with
access to the Trail , and the enhanced user comfort and safety, in comparison to existing
routes.
Riverfront, Minto, and Wallace Marine Parks are Salem' s most visited parks, representing
almost 1,000,000 visitors annually (City of Salem, Public Works, 201 0). Gains made by
increasing bicycle, transit, and pedestrian access for all, or a portion of travel to these parks,
will increase the use of sustainable transportation and reduce GHG and VMT.
Community Livability
The Bridge and Trail are expected to attract new bicyclists and pedestrians, including
beginning cyclists, children, and families to Salem's largest network of off-street trails.
Salem's access to parks and recreation is very limited without reliance on the automobile.
However, by providing a safe, no cost, welcoming alternative to automobile commuting to
work/school, alternative mode trips are expected to increase.
Although approximately 60 percent of Salem's streets contain bike lanes, the network lacks an adequate number of off-street paths
and/or lower volume routes to make bicycling for families, youth, and non-expert riders a safe, accessible, and enjoyable
transportation option. By drawing these bicyclists to the Trail for recreation first, it is expected over time these individuals will expand
their use. Rather than driving to Minto Brown Island Park, Riverfront Park, or Wallace Marine Park, residents with access to the Trail
and Bridge, may walk, bicycle or use transit for all or a portion of their trip. It is likely these individuals may expand their use of the
Trail to include commuting to work or school, as has been evidenced with the complet ion of the Union Street Railroad Bridge. On a
weekday in April 2011, 930 individuals were counted traveling across the Union Street Railroad Bridge during a seven hour period
(Salem Public Works Development, April 19, 2011 ).
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