new community revitalization tiger grant application · of storm drains or the installation of...

New Windsor Community Revitalization TIGER Discretionary Grant Application

SUBMITTED BY: Maryland Department of Transportation

State Highway Administration

LOCATION Town of New Windsor, Maryland

PROJECT TYPE: Rural

GRANT REQUEST: $4,833,500

MATCHING FUNDS: $5,911,802

TOTAL PROJECT COST: $9,925,302

PROJECT SUMMARY

Project Name New Windsor Community Revitalization Project

Applicant Maryland Department of Transportation

State Highway Administration

Contact Information William R. Gayle

Deputy Director of Policy and Innovation

Office of Policy and Research

Maryland Department of Transportation State Highway Administration

707 N. Calvert St., C‐412

Baltimore MD 21202

410‐545‐0342

[email protected]

Project Type Rural

Project Description The Maryland Department of Transportation State Highway Administration

(MDOT SHA) is partnering with the rural Town of New Windsor (Town) as

well as Carroll County (County) to revitalize its main thoroughfare (MD 31)

with pedestrian, pavement, drainage, lighting, and intersection

improvements. Currently, the roadways, sidewalks, and stormwater

infrastructure on this route are in poor condition and pedestrian facilities

are not Americans with Disabilities Act (ADA) compliant. These conditions

result in roadway flooding, and poor geometry at two key intersections

present safety issues that impact both pedestrians and vehicles. The goal of

the New Windsor Community Revitalization Project is to enhance safety,

state of good repair, and accessibility for pedestrians and drivers to local

businesses along MD 31.

Project Cost $9,925,302

TIGER IX Request $4,833,500

Other Sources and Amounts $4,793,026 – MDOT SHA/State

$ 298,776 – Town of New Windsor

NEPA Status A Programmatic Categorical Exclusion is anticipated for this project, and

NEPA approval is anticipated in advance of advertisement.

Completion Date Third Quarter Calendar Year (CY) 2023

Benefit‐Cost Analysis Results Based on the BCA, the New Windsor Community Revitalization Project is

estimated to achieve a 1.08 ratio of benefits to costs at a 7 percent discount

rate, and a 1.85 benefit cost ratio at a 3 percent discount rate.

MDOT TIGER Information www.mdot.maryland.gov/TIGER

New Windsor Community Revitalization Project i TIGER IX Discretionary Grant Application

TABLE OF CONTENTS

I. PROJECT DESCRIPTION ........................................................................................................ 1

II. PROJECT LOCATION ............................................................................................................ 7

III. PROJECT PARTIES .............................................................................................................. 11

IV. GRANT FUNDS, SOURCES AND USES OF PROJECT FUNDS ................................................ 13

V. MERIT CRITERIA ................................................................................................................ 17

VI. PROJECT READINESS ......................................................................................................... 25

VII. BENEFIT COST ANALYSIS ................................................................................................... 29

VIII. COST SHARE ...................................................................................................................... 30

APPENDIX A: LETTERS OF SUPPORT

APPENDIX B: BENEFIT‐COST ANALYSIS

APPENDIX C: FEDERAL WAGE RATE CERTIFICATION

APPENDIX D: SUPPLEMENTAL INFORMATION

I. PROJECT DESCRIPTION

New Windsor Community Revitalization Project 1 TIGER IX Discretionary Grant Application

I. PROJECT DESCRIPTION

PROJECT OVERVIEW

The historic Town of New Windsor, Maryland (Town) was established in 1797 as a business center along trade routes to Philadelphia, Pennsylvania and Winchester, Virginia. For decades, this rural town has expressed its desires for growth and development through its comprehensive planning process. While population and economic growth in the Town has been minimal over the last 200 years, unprecedented investment has recently begun to come to the area, including the establishment of a new limestone mining operation (New Windsor Quarry) and the redevelopment of a 21‐acre parcel to support the opening of a new preparatory school (Springdale Preparatory). These investments are bringing a new transient population to the Town‐ mine workers and people of all ages attending and working at Springdale Preparatory‐ thus creating a tipping point for the growth of small business and retail along the Town’s main thoroughfare. Despite this outside investment, the crumbling transportation infrastructure with in the project limits is detrimental to future economic growth. Currently, the roadways, sidewalks, and stormwater infrastructure along MD 31 are in an extremely poor state of repair, and many pedestrian facilities are not Americans with Disabilities Act (ADA) compliant. The poor infrastructure, along with poor geometry at two key intersections, creates safety issues and roadway flooding that impacts residents, particularly the elderly and disabled population in the Town. The New Windsor Community Revitalization Project aims to revitalize the transportation infrastructure along MD 31, including sidewalk, pavement, intersection, drainage, and lighting improvements, to support the existing community and help to support future economic growth. The success of the New Windsor Community Revitalization Project can serve as an example of creating a “main street” where now there is just a cross roads for many other burgeoning rural towns throughout the mid‐Atlantic and the rest of Middle America. The project elements are illustrated in the follwing figure.

New Windsor State Bank and the New Windsor Museum on Main Street

Deteriorating road and sidewalk conditions along MD 31


CURRENT CONDITIONS

The roadway and pedestrian infrastructure along MD 31 is crumbling and two key intersections suffer from poor geometry. Few of the pedestrian facilities are ADA‐compliant, and the existing pedestrian facilities are not contiguous, which impacts accessibility in the area and elevates safety risk given there is no way to traverse the Town safely while walking from end to end. Deteriorated drainage often results in ponding or roadway flooding, which impacts service levels and the business around the area. Overall, the poor infrastructure in the project corridor stifles the ability for New Windsor to experience continued economic growth. Segment A (High Street from Lambert Avenue to Main Street): The existing typical section of MD 31 from Lambert Avenue to Main Street includes two 11 to 12‐foot travel lanes, one in each direction. In most locations, there are shoulders of eight to nine feet in width used for parking. There is a patchwork of sidewalks on both sides of the street; however, in many locations they are overgrown, they are constructed with inconsistent materials and have tree roots coming through them, causing cracking and unevenness. Generally, the sidewalks and curb ramps are not ADA‐compliant in this section of MD 31.

New Windsor Community Revitalization Project Elements


Sidewalks along Segment A (High Street at Lambert Avenue)

When the New Windsor Community Revitalization Project is complete, this section will have two fully rehabilitated 11‐foot lanes, one in each direction, with 10‐foot shoulders on either side for parking. Appropriate curbing and landscaping walls will also be constructed along MD 31 with improvements to storm drain inlets. Five‐foot ADA compliant concrete sidewalks with curb ramps will be constructed on both sides of the street with handrails being installed on the west side of the street where necessary to increase safety for the elderly and disabled. New pedestrian lighting will be installed on the east side of the street. Segment B (Main Street from High Street to New Windsor Road): On Main Street, MD 31 consists of two 11‐foot travel lanes, one in each direction, and a shoulder in the southwest direction that is used for parking. Like High Street, sidewalks are narrow, intermittent and in severe need of repair. In some locations, no sidewalks exist or they are in such disrepair they are not safe for pedestrians to use, who then must walk in the road along the curbside. In some areas, overgrown paths exist where there used to be sidewalks.


Example of an overgrown former sidewalk along Segment B (Main Street near Brownie Drive)

When the New Windsor Community Revitalization Project is complete, this section will have two fully rehabilitated 11‐foot lanes, with one 8‐foot wide shoulder, which will also serve as on‐street parking, new 5‐foot ADA‐compliant sidewalks will be constructed with curb ramps on both sides of the street. Pedestrian lighting will be installed on the west side of Main Street. Segment C (New Windsor Road from Main Street/Springdale Road to Church Street): Currently, as MD 31 turns east on to New Windsor Road at the juncture of Main Street and Springdale Road, there are two 11‐foot travel lanes with virtually no shoulders. Sidewalks on the south side of the street are non‐existent forcing pedestrians to walk in the roadway and on the north side of the street a narrow walking path exists.

When the project is complete, as MD 31 turns east on New Windsor Road at the junction of Springdale Road and Main Street, there will be two 11‐foot lanes, one in each direction with a 5‐foot ADA compliant sidewalk on both sides. Due to right‐of‐way limitations, no shoulders will be available for parking through this section of the project. Storm drains will also be included in this segment.


Currently there are no sidewalks on the south side of Segment C (New Windsor Road) and a

narrow, non‐ADA‐compliant walking path on the north side

Throughout the Project Area Poor drainage throughout the project limits results in frequent ponding and occasional flooding. This is caused in part by deteriorated storm drains, but also in part by aged and damaged storm water pipe. The Town already has a project underway to replace the water and sewer lines that are their responsibility, but that scope of work does not include reconstruction of storm drains or the installation of concrete storm drain pipes along the corridor. The New Windsor Community Revitalization Project will unlock the full benefit of upgraded storm water infrastructure throughout the project area in the Town resulting in environmental benefits with more efficient storm water reclamation and usage of water treatment facilities. MD 31 has not had a major rehabilitation in nearly 20 years, resulting in fair and poor pavement conditions throughout the corridor as rehabilitation efforts since then have been patching and crack/joint sealing.


The project includes the following improvements throughout the corridor that is just over one mile in distance:

2 Reconstructed intersections with improved geometry

2.25 Lane miles of rehabilitated pavement and lane markings (total in each direction)

26 Reconstructed storm drains

42 New ADA‐compliant curb ramps

69 New pedestrian lighting poles/fixtures

6,600 Linear feet of new or rehabilitated sidewalk and landscaping walls

8,400 Linear feet curb replaced or rehabilitated

The New Windsor Community Revitalization Project is the perfect complement to Town’s Public Works Department existing $4 million initiative to replace all sewer lines and water lines throughout the project area. In the absence of a TIGER award, the Town will be challenged to support economic development in the area given the Maryland Transportation Fund’s full commitment to other projects.

Images above provide examples of poor pavement conditions (top), clogged storm drains (bottom left) and deteriorated storm piping (bottom right), which is

being replaced with reinforced concrete pipes

II. PROJECT LOCATION


II. PROJECT LOCATION

PROJECT CONTEXT

Nearly the entire incorporated area of the Town is designated as the New Windsor Historic District by the Maryland Historical Trust (MHT), which is Maryland’s agency dedicated to preserving and interpreting the legacy of Maryland’s past. According to the MHT, the district contains a wide variety of domestic, commercial, public, educational, and religious resources reflecting the development of the Town from its founding in 1797 up to the World War II era. The design of the New Windsor Community Revitalization Project is intended to match and complement the context of the community, contributing to a greater sense of place and connectivity in this Historic District. The New Windsor Historic District is unique in that the architecture of both commercial and residential dwellings located within the Town limits remain relatively consistent with how they were originally constructed and have not been aesthetically modernized on the exterior. The district retains an exceptionally high level of integrity, with relatively few intrusions or non‐contributing elements. In addition, unlike most towns in rural Carroll County, New Windsor developed not only as a focal point for the surrounding farm community, but also served as a summer resort town for people from Baltimore and Washington, DC from its beginning. The

Carroll County, Population: 167,656 New Windsor, Area: 0.75 square miles New Windsor, Population: 1,400 New Windsor, Elderly Population: 155 (11%) New Windsor, Unemployment Rate: 6.4% New Windsor, Median Household Income: $64,063 Town is a Designated Historic District by the Maryland Historical Trust


most common type of dwellings is two‐ or two and half‐story center‐entrance or center‐passage plan dwellings. The influence of popular styles began to be felt in the post‐Civil War period, with Queen Anne houses in the 1870s, through the early 20th century trends, which is represented by T‐plan houses, with a gable end to the street and a short wing on either side. It is imperative that we protect this Town’s transportation infrastructure to preserve the historic character of this Town to ensure that future generations can experience the rarity of the Town.

The U.S. Census Bureau designates the Town as a rural area; therefore, per the 2017 TIGER Notice of Funding Opportunity ‐ the New Windsor Community Revitalization Project is a rural project.

By nearly all accounts, the Town is a shining example of success in Middle America where urbanization often dominates the headlines. Despite its small size, the Town maintains lower

Dielman Hotel on Main Street at High Street

New Windsor Historic District Boundary


than average unemployment rates, and higher median household incomes. These are some of the reasons New Windsor has experienced recent outside investment. The Lehigh Cement company recently established a new limestone quarry which will keep their nearby Union Bridge Cement Plant running for the next 70 years. This cement plant is the 2nd largest of its kind in North America. The New Windsor Quarry will support 30 local workers who will rely on the small businesses in the Town for food and shopping. Lehigh estimates that currently 300 individuals (customers, vendors, and freight) pass through New Windsor daily on MD 31 in support of their plant operations. The New Windsor Quarry is expected to be operational by the end of CY 2017.

Outside investors recently redeveloped a 21‐acre parcel to support the opening of the Springdale Preparatory School (Grades 5‐12). Springdale opened their doors in August, 2017 and currently has 150 students enrolled. The school is attracting many students from outside of New Windsor, which is enhancing the Town’s transient population. Teachers, parents, and students alike are now looking to New Windsor for food and shopping.

Several commercial, industrial, and institutional buildings are important to the architectural character of New Windsor. There are more than 50 other businesses located in the Town and surrounding area, along with several institutional and historic landmarks that contribute to the charm of this rural town. These include the Dielman Inn (located within the project limits at High Street and Main Street), which was established at the major crossroads in the late 18th century, and continued to develop through the 19th century. The former Blue Ridge College, which consists of four historic structures, three of them arranged in an arc along the ridge, overlooking New Windsor Road, also the home of the recently opened Springdale Preparatory School. Three historic churches and three banks also are characteristic of the Town. The Town Hall and firehouse on High Street is an early 20th century brick structure with a flat roof.

Examples of Queen Anne architecture along Segment A

Springdale Preparatory Opened in August 2017


New Windsor Economic Development Area

III. PROJECT PARTIES


III. PROJECT PARTIES

MARYLAND DEPARTMENT OF TRANSPORTATION STATE HIGHWAY ADMINISTRATION

MDOT SHA is the applicant and will be the grant recipient and administrator of the TIGER discretionary grant, if awarded. MDOT SHA maintains most State‐owned roadways in Maryland, including MD 31. MDOT SHA has been leading the design and development of this project for at lea five years and has invested more than $1.7 million thus far in in right‐of‐way, design, and community engagement

activities to date. Community revitalization is critical to ensure that each town maintains its character and integrity throughout our State. The New Windsor Community Revitalization is listed in the MDOT SHA’s Highway Needs Inventory and Baltimore Regional Transportation Board’s Maximize 2040 Long‐Range Transportation Plan, which has been approved.

TOWN OF NEW WINDSOR

The Town is an active and supportive project partner. The Town is a financial participant in the New Windsor Community Revitalization Project and are contributing approximately $300,000 to fund a portion of the costs for the pedestrian lighting features included in the project. Another key aspect of their involvement has been their contribution to

making water line and sewer line improvements that are complimentary to the stormwater drainage improvements included in the New Windsor Community Revitalization Project. MDOT SHA has worked closely with the Town to ensure the design of the New Windsor Community Revitalization Project is compatible with the projects the Town is investing in prior to the implementation of this project, in terms of both the design and the project schedules. The Town is also investing approximately $4 million in replacement of both sewer line and water lines throughout the area, which will further enhance the benefits yielded by the New Windsor Community Revitalization Project.

CARROLL COUNTY

Carroll County is a supportive partner in this project. The project is described in a letter to the Maryland Secretary of Transportation from the County Board of Commissioners outlining its most recent Priority Letter for the FY 2018‐2013 Consolidated Transportation Program for the county. The letter includes the New Windsor Community Revitalization Project as a priority related to

“Community Reconstruction (Streetscape) Projects.”


LETTERS OF SUPPORT

MDOT SHA has received broad support for the New Windsor Community Revitalization Project from a variety of public agencies, local organizations, and elected and appointed officials. See Appendix A for all letters of support.

• Maryland Secretary of Transportation • U.S. Senators Benjamin Cardin and Chris VanHollen • U.S. Congressmen John Delaney, Andy Harris, and Jamie Raskin • State Senator Justin Ready • Maryland Transportation Commission • Baltimore Regional Transportation Board • Carroll County Department of Planning • Town of New Windsor • New Windsor Fire and Hose Company #1 • Lehigh Heidelberg Cement Group • Springdale Preparatory School • Carroll County Chamber of Commerce • Carroll County Public Library

IV. GRANT FUNDS, SOURCES AND USES OF PROJECT FUNDS


IV. GRANT FUNDS, SOURCES AND USES OF PROJECT FUNDS

PROJECT COSTS

MDOT SHA has invested significant funding to this project and has committed $4,793,026, constituting approximately 48 percent of the project costs. Other local match sources include $298,776 in funds from the Town, bringing the non‐Federal contribution to this project to 51 percent of total funding. No Federal funds will be used for the local match for this TIGER discretionary grant. The project has not requested nor received Federal grant funding in the past to support this project. Given significant statewide transportation priorities and limited financial resources, this project cannot be efficiently completed without a TIGER Discretionary Grant. For MDOT SHA funds, there are no restrictions or compliance conditions attached to the matching funds other than that they are spent on MDOT projects. See Appendix A for the commitment letter from the Maryland Department of Transportation, which can be found on the MDOT 2017 TIGER Website.

SOURCES AND USES OF FUNDS

MDOT has developed a $14.7 billion, six‐year program that includes over $8 billion in State of Maryland funding. Despite this significant investment, the transportation and infrastructure needs of the State of Maryland continue to be greater than available resources. The proposed TIGER discretionary funding for the New Windsor Community Revitalization Project would allow MDOT and the Town to accelerate the project and continue the momentum from planning and design to construction. MDOT evaluated numerous projects for TIGER eligibility and priority and the New Windsor Community Revitalization Project was one of two projects selected for a 2017 TIGER discretionary grant application. In addition, MDOT has evaluated this project for Transportation Alternatives Program funding but only limited project elements would be eligible; therefore, it is not a viable funding option to address the entirety of the needs identified with this project. Sources and Uses of Funds % Share Amount

SOURCES

TIGER IX Grant 48.7% $4,833,500

MDOT/State 48.3% $4,793,026

Town of New Windsor 3.0% $298,776

TOTAL 100.0% $9,925,302

USES

Preliminary Engineering 23.3% $2,317,000

Right of Way 4.2% $421,002

Utilities 5.7% $552,300

Construction 66.8% $6,635,000

TOTAL 100.0% $9,925,302


In addition to the sources and uses of funds identified above, the Town is spending approximately $4 million on improvements to replace sewer lines and water lines that complement the New Windsor Community Revitalization Project. If these contributions were considered as part of the total project sources and uses of funds, the proposed Federal funding share would be reduced from approximately 49 percent to 35 percent.

DETAILED USES OF FUNDS

The entire project is located within the incorporated area of New Windsor, Maryland. The project area includes MD 31 (High Street/Main Street/New Windsor Road) from Lambert Avenue to Church Street, just over one mile in each direction. As previously discussed, Segment A is located on High Street from Lambert Avenue to Main Street, Segment B is located on Main Street from High Street to New Windsor Road, and Segment C is located on New Windsor Road from Main Street/Springdale Road to Church Street.

Sidewalks

The project will correct and improve sidewalk compliance with ADA standards through the construction of new sidewalks and replacement of others. New sidewalks will be constructed from Main Street to Church Street to provide full pedestrian connectivity throughout the Town. Further, sidewalks along High Street and Main Street will be replaced. For some of the sidewalks along Main Street, handrails will be included where required for ADA‐compliance where there is little space between the curb and the sidewalk.

Pedestrian Lighting

New pedestrian lighting will be installed along the project limits. This includes lighting on the east side of High Street, and the west side of Main Street. Installation will include 69 poles with 60‐foot spacing. Locations of pedestrian lighting have been determined based on a feasibility study performed by MDOT SHA’s Office of Traffic and Safety in 2015 and account for existing utilities and the locations of homes.

Intersection Geometry

The geometry of the intersections at (1) New Windsor Road and Church Street and (2) New Windsor Road and Springdale Road will be modified to improve safety in this rural town. The entrance to the Town has a 37‐degree skewed intersection at New Windsor Road and Church Street and a 35‐degree skewed intersection of New Windsor Road and Springdale Road. Intersections with acute angles pose a safety issue for both vehicles and pedestrians and these improvements will provide for better drivability and accessibility for the drivers within the region.

Drainage

Drainage features will be constructed or improved along the route to provide capacity for a 10‐year storm event and design flow profiles for the 25‐year hydraulic grade line. Existing drainage features that are in good condition will be utilized and those that are in poor condition, or are


not functioning properly due to location and condition, will be replaced. These investments in new storm drains will also leverage New Windsor’s recent $4 million investment in replacing sewer and water lines throughout the area. The images below provide examples of a cross section of the MD 31 once the New Windsor Community Revitalization Project is complete.

Planned Typical Section of Segment A (High Street from Lambert Avenue to Main Street)

Planned Typical Section Segment B (Main Street from High Street to New Windsor Road)


Planned Typical Section Segment C (New Windsor Road from Main Street/Springdale Road to Church Street)

Together, these investments will create an improved “main street” that connects the Town to the rest of Carroll County and serves as a resource for those that wish to walk among the homes, to worship services, or to the commercial establishments. This project will also contribute to the area’s long term economic viability, and help to sustain the momentum of recent economic growth.

IV. MERIT CRITERIA


V. MERIT CRITERIA

The New Windsor Community Revitalization Project will bring deteriorated transportation assets back into a State of Good Repair and yield numerous benefits to the Town and the surrounding region as discussed below.

PRIMARY SELECTION CRITERIA

Safety

There are several elements of the New Windsor Community Revitalization Project that improve safety for the constituents of the Town and the travelling public, including sidewalk and intersection improvements. The New Windsor Community Revitalization Project will improve pedestrian safety through the installation of continuous ADA‐compliant sidewalks on one or both sides of the street. These improvements will create a continuous path for pedestrians, lowering the likelihood of people walking in the street. Most of the sidewalks along High Street and Main Street are not compliant with ADA standards regarding their width. There are broken surfaces that exceed the maximum vertical differences (¼ inch), and a deficiency of cross slope and curb ramps. The existing sidewalk materials vary between concrete, brick, asphalt pavers and terracotta tiles, and are broken and uneven making them unsafe for everyone. There is also a lack of pedestrian ramps, as many sidewalk crossings are fully curbed at side street intersections. Where pedestrian ramps do exist, the ramps are not ADA‐compliant. In some areas, the sidewalk is lower than the roadway, allowing water to pond in the walkway. Additionally, there are areas where tree roots and vegetation are impeding the sidewalk, thus reducing the width and forming cracks and forcing pedestrians onto the roadway where there is a limited shoulder. The project will also improve safety for drivers by providing clear lane markings and parking stalls to limit collisions with stationary vehicles. Throughout the project area there are faded crosswalk and parking stall markings. Poorly delineated or unmarked crosswalks provide little


incentive for pedestrians to cross in crosswalks and at intersections where it is safer to cross. There is no indication to motorists that pedestrians may be crossing at these locations. This increases the risk of pedestrian‐involved accidents. The inclusion of pedestrian lighting in the project will further enhance the safety features gained with the sidewalk and lane marking improvements by making pedestrians more visible along the roadway.

There are two intersections that will be upgraded as part of the New Windsor Community Revitalization Project to improve the drivability and accessibility for drivers within the region. Intersection #1 (Main Street/Springdale Road) and Intersection #2 (New Windsor Road and Church Street) both have acute angles and in conjunction with the curve in the roadway, are challenging and difficult to maneuver for the older members of the community as pedestrians and motorists. It has not yet been determined whether a traditional intersection that improves the intersections’ geometry to closer to a 90‐degree angle than currently exists or a roundabout will be utilized in making these improvements. To be conservative, the cost for roundabout construction at both intersections has been included in the uses of funds provided in Section IV, as roundabouts are more expensive than modifying the existing geometry. A determination of what type of intersection modifications that will ultimately be included in the New Windsor Community Revitalization Project will be made based upon MDOT SHA’s Practical Design Policy, which is focused on understanding a project’s needs to ensure their achievement for the most economical cost. Quantitative data such as U.S. Census Bureau data

Current curb ramps will be replaced with ADA‐compliant sidewalk ramps.


from 2010 indicating that 24.9 percent of the Town’s population is between the ages of 45 to 64 years and 12.0 percent were 65 years of age or older. Other factors such as the recent opening of the Springdale Preparatory School and an 83‐home community for residents 55‐years and older will factor into the intersection modification selection. According to the Federal Highway Administration (FHWA)’s Design Handbook for Older Drivers and Pedestrians, there is broad agreement that right‐angle intersections are the preferred design. Decreasing the angle of the intersection makes detection of and judgments about potential conflicting vehicles on crossing roadways much more difficult. In addition, the amount of time required to maneuver through the intersection increases, for both vehicles and pedestrians, due to the increased pavement area. A right‐angle crossing (90 degrees) is normally desired, an angle of 60 degrees provides most of the benefits that are obtained with a right‐angle intersection. Intersections with severe skew angles (e.g., 60 degrees or less) often experience operational or safety problems. Reconstruction of such locations or utilization of traffic controls such as signalization is often necessary. Further, related to intersection design issues on two‐lane rural highways, such as MD 31 in the Town, the Institute of Transportation Engineers (1999) states that: "Skew angles greater than 75 degrees often create special problems at stop‐controlled rural intersections. The angle complicates the vision triangle for the stopped vehicle; increases the time to cross the through road; and results in a larger, more potentially confusing intersection." Skewed intersection issues are exacerbated for older drivers, who often experience a decline in head and neck mobility, which accompanies advancing age and may contribute to the slowing of psychomotor responses. The limited range of motion can reduce an older driver's ability to assess the intersection, and may hinder the timely recognition of conflicts during turning and merging maneuvers at intersections (Ostrow, Shaffron, and McPherson, 1992). For older pedestrians, the longer exposure time within the intersection also becomes a major concern. The impact of reduced mobility reinforces the desirability to provide 90‐degree intersection geometry and endorse the ITE (1984) recommendation establishing a 75‐degree minimum as a practice to accommodate age‐related performance deficits. Additional safety benefits can be achieved with the use of a single‐lane roundabout rather than a 90‐degree intersection with two‐way stops. Many studies have found that one of the benefits of roundabout installation is the improvement in overall safety performance. Several studies in the U.S., Europe, and Australia have found that roundabouts perform better in terms of safety than other intersection forms. Single‐lane roundabouts, such as the type that may be utilized in the New Windsor Community Revitalization Project have been found outperform two‐way stop‐controlled intersections in the U.S. Although the frequency of reported crashes is not always lower at roundabouts, reduced injury rates are typical. Roundabouts are safer than 90‐degree intersection options

Roundabout Intersection Pedestrian Marking Example


because conflicts are reduced (by a factor of 32 to eight), speeds are reduced and more consistent, and pedestrians cross one direction of traffic at a time. The figure below shows the potential points of vehicular conflict at a two‐way stop‐controlled intersection versus a single‐lane roundabout.

Points of Potential Vehicle Conflict Points 90‐Degree Intersection versus Roundabout

The roadway rehabilitation included in the New Windsor Community Revitalization Project will also increase safety by improving the friction of the pavement, thereby increasing skid resistance. According to FHWA’s Evaluation of Pavement Safety Performance Technical Report, the 1999 statistics from the Fatality Analysis Reporting System, “show that for two‐lane, undivided, non‐interchange, non‐junction roadways, 11 percent of single‐vehicle run‐off‐road fatal crashes occur on wet roadways, with 3 percent more occurring on roadways with snow, slush, or ice.” These accidents are often related to the skid resistance of the pavement and can be reduced with countermeasures aimed at improving the friction of the pavement so that the amount of water on the pavement is reduced. Skid resistance is further impacted by factors including the pavement age, the structural condition, and road surface type and texture.

State of Good Repair

Several project elements are aimed at improving the state of good repair and are aimed at addressing current and projected infrastructure vulnerabilities. These elements include the roadway rehabilitation and stormwater improvements. An element of the project includes the rehabilitation of MD 31 that will reduce the overall life‐cycle cost of the roadway, and if left unimproved, the pavement will only deteriorate further and can be expected to be in “poor” condition. The MDOT SHA Office of Materials Technology (OMT) has rated the existing functional and structural roadway condition as fair. The pavement structure along MD 31 within the project limits has not been rehabilitated since 1987. Several major distresses have been identified including utility patches, cracking and other pavement


damage that reduces ride quality and decreases the structural integrity of the pavement. The Pavement and Geotechnical Design Guide is published by OMT and provide MDOT SHA project managers with guidelines related to testing pavements so that appropriate design and the level of pavement rehabilitation that is needed based on pavement condition. The pavement rehabilitation as part of this project will result in pavement with a 15‐year service life. The stormwater improvements included in the New Windsor Community Revitalization Project include replacing and/or upgrading non‐standard existing drainage features and the installation of reinforced concrete pipes (storm water) throughout the project limits. There have been numerous drainage complaints due to water on the roadway, specifically at the intersection of High Street and Main Street, the intersection of Main Street and Union Bridge Road and at non‐standard inlet openings. Along MD 31, the existing drainage features vary in size and material, are in poor condition or improper location, and many do not meet current MDOT SHA standards, which are outlined in MDOT SHA’s Highway Drainage Manual. Drainage features that are in good condition will be utilized and drainage features that are in poor condition, or are not functioning properly due to location will be evaluated and replaced as needed to provide capacity for a 10‐year storm event and design flow profiles for the 25‐year storm hydraulic grade line. The stormwater piping being installed by the Town that complements the implementation of the drainage features included in the New Windsor Community Revitalization Project, are made of reinforced concrete and have an estimated service life of 75 years, which exceeds the 50‐year service life requirement. The pedestrian improvements include rehabilitation and replacement of sidewalks that are in various levels of disrepair within the project limits. Many of the crosswalks and parking lanes have faded or non‐existent markings. In addition, landscaping walls that separate the grade between the sidewalk and residences will also be repaired or replaced as needed. Much of these works have been needed for many years as evidenced by the cracking and unevenness of the sidewalks and the vegetation growing through the bricks that make up some of the existing pathways along Segment A and Segment B.

Economic Competitiveness

The New Windsor Community Revitalization Project and all its inherent benefits ultimately serve to support the existing local economy and the Town’s future growth. Per Smart Growth America’s National Complete Streets Coalition’s March 2015 report Safer Streets, Stronger Economies: Complete Street Project Outcomes from Across the Country, implementing projects that have better pedestrian amenities can bolster economic development. Of the projects studied in this report, towns and cities reported higher employment rates along these corridors, net new businesses, and an increase in property values. This project is an outcome of the Comprehensive Plan, which identified economic viability as a goal for the Town. The New Windsor Community Revitalization Project will impact over 50 businesses located within the Town. The improvements will enhance pedestrian access to these places of business for both patrons and employees. With the opening of the Springdale Preparatory School, in Fall 2017, there will be a small transient population that will benefit from better pedestrian access


throughout the main thoroughfare of the Town. The Springdale Preparatory School currently has 25 students with 12 faculty and is expecting enrollment to increase to 300 in approximately five years. MD 31 serves as a truck route for various businesses in located within 10‐mile radius of the Town. These businesses include Lehigh Union Bridge, who is opening a quarry on the outskirts of the Town that will feature a permanent conveyor system to move limestone from the quarry to the Union Bridge Cement Plant. The Union Bridge Cement Plant is the second largest cement producing facility of its kind in North America and supplies cement for projects from New York to Indiana. The Performance Food Group employs just over 200 and is located approximately four miles from the Town and is a supplier to the food service industry focused on providing specialized meat, seafood, cheeses, and produce to the restaurant industry. An analysis was conducted to estimate the number of construction‐period jobs that would be supported, both at the state and national levels, by the New Windsor Community Revitalization Project. This analysis is based on the RIMS II multipliers from the U.S. Bureau of Economic Analysis. It is estimated that 107 jobs will be added in Maryland, and 181 jobs nationally.

Environmental Sustainability

The project involves the construction of additional stormwater inlets and stormwater management facilities. While the benefit of additional storm drain inlets for reduced ponding and safer vehicle conveyance is clear, environmental benefits also exist because of the stormwater management facilities proposed to be constructed as part of the project. Specifically, planned for installation at this point are a grass swale and a bio retention system. Per guidance from the United States Environmental Protection Agency, these stormwater facilities increase detention time of flows and have a filtering effect that can remove pollutants from stormwater before it drains to waterways. Increased detention time results in reduction of peak flows that can cause increased erosion and convey pollutants from the roadway into waterways. The benefits to pollution reduction for stormwater management facilities also benefits the criteria air pollutants frequently discussed in the context of transportation projects. These pollutants enter the waterways as well during rain events, and the selected stormwater management facilities will help to detain and filter these before reaching waterways. Other benefits associated with a more resilient stormwater management system involve reduced homeowner emergency repairs for basement flooding, which is a frequent complaint in the area, and avoidance of wet‐road related accidents that may be exacerbated by ponding. In addition, the stormwater improvements will result in fewer occurrences of storm mode operation at the New Windsor Wastewater Treatment Plant. During periods of high storm flow, the Plant is not able to treated wastewater to the same quality as during normal operation. There will also be an energy savings for the plant through peak daily flow reductions.

Quality of Life and Livability

The upgrades and construction of sidewalks included in the New Windsor Community Revitalization Project will improve the quality of life by improving connectivity for the traveling public, as well as provide a sense of security with the separation of traffic and pedestrians will


be improved. This project element will result in continuous five‐foot wide, ADA compliant sidewalks within the project boundary. Additionally, sidewalk ramps will be added where none currently exist, existing ramps will be upgraded, and handrails will be included for full ADA compliance. According to the American Association of Retired Persons (AARP) Sidewalks Livability Factsheet, “Sidewalks play a vital role in community life. As conduits for pedestrian movement and access, they enhance connectivity and promote walking. As public spaces, sidewalks are the front steps to the community, activating streets socially and economically.” Sidewalks also provide much needed connectivity for pedestrians to navigate their everyday lives as they move to and from work places, shops, and restaurants. The pedestrian improvements, including sidewalks, ramps, and lighting, will help to create a “downtown” zone where none currently exists given the current state of disrepair. Visually these improvements will create an environment that is more inviting and livable. Given that most of the area within the Town limits have the designation as the New Windsor Historic District, the New Windsor Community Revitalization Project is aimed at maintaining the historic “feel” of the Town. The style of light fixtures selected preserves the continuity of the Historic District, the fixtures themselves are modern and cost‐efficient. In addition, landscaping wall repairs and some sidewalk replacements that are included in the project will be “replacements in kind” such that the historic atmosphere is not disturbed, solidifying the livability aspects of the Town.

SECONDARY SELECTION CRITERIA

Innovation

The New Windsor Community Revitalization Project is being designed using MDOT’s Practical Design Policy, which was adopted by current Maryland’s Secretary of Transportation, Pete Rahn, in September 2016. The purpose of this policy is three‐fold and described below.

Provide design principles, which focus on producing safe and efficient projects that address an area’s most important needs at the most economical cost.

Provide a methodology by which these principles can be incorporated into all planning, preliminary engineering, and design activities.

Define when in a project cycle practical design methods and principles should be employed.

Damaged Landscaping Wall Along Segment B (Main Street from High Street to New Windsor Road)


In addition to adhering to the Practical Design Policy, the project has been developed using the “Main Street Process”, an approach that is outlined in MDOT SHA’s handbook When Main Street is a State Highway. This approach includes aligning MDOT SHA and a community’s goals, creating a task force to champion the project, and defines the roles and responsibilities for various task force members related to background studies and site analysis. This publication also discusses implementation and how projects that are in the concept stage can move to implementation through the design, funding, and construction phases.

Partnership

MDOT SHA is committed to improving the safety and accessibility of state roadways in rural local jurisdictions through close collaboration and partnership. If the proposed TIGER grant funding is not received it will be difficult for MDOT SHA to implement the project. Continued increases for project needs with lower total funding available make it difficult to implement projects such as the New Windsor Community Revitalization Project. Although MDOT SHA is the applicant for this TIGER grant, it has partnered closely with the Town to develop this project. As a testament to this partnership and as a show of commitment, the Town will be financially responsible for certain elements, such as the installation of portions of the new lighting that is being installed as part of the project. In addition to the lighting features to which the Town is financially contributing, they are replacing the existing utility infrastructure for water and sewer prior to the implementation of the New Windsor Community Revitalization Project. This will allow a seamless integration of the new drainage features with the Town utilities. If the project costs associated with improving the utility infrastructure were included in the total project costs, the proposed Federal portion of funding would be reduced from 49 percent to 35 percent. Carroll County is also an important partner for the implementation of this project. The project is included in a Priority Letter for the FY 2018‐2013 Consolidated Transportation Program and includes the New Windsor Community Revitalization Project as a priority related to “Community Reconstruction (Streetscape) Projects.” A public meeting was held after the 30 percent design was completed in October 2014. MDOT SHA is planning to prepare a newsletter and have an additional public meeting in Summer of 2018. These activities are part of the “Main Street Process” employed by MDOT SHA when working collaboratively with localities to implement projects.

VI. PROJECT READINESS


VI. PROJECT READINESS

MDOT SHA is committed to completing all steps necessary to implement the New Windsor Community Revitalization Project. The following chart summarizes all schedule milestones discussed in this section.

TECHNICAL FEASIBILITY

The project is currently at 65 percent design completion. MDOT SHA has or will complete the following plans and studies for this project:

These activities have determined that the project is technically feasible and does not pose any significant risks. Additionally, although the New Windsor Community Revitalization Project is in a Historic District, it will not have adverse effects on the Historic District. The Maryland Historical Trust and MDOT SHA complete projects on a regular basis in a manner that complies with historic preservation law, in general as well as projects specific to streetscape improvements. MDOT SHA has an excellent track record in delivering Federally‐funded projects, as demonstrated by its administration of both Federal discretionary grants and its annual apportioned funding. In Federal Fiscal Year 2017 MDOT SHA was responsible for approximately $618 million in apportioned highway funds.

NEPA Programmatic Categorical Exclusion (PCE) Approval by Second Quarter CY 2018

Maryland Historic Trust Approval received‐ First Quarter CY 2017

Fish and Wildlife Service Concurrence received‐ Third Quarter CY 2017

MD Department of Natural Resources received‐ Third Quarter CY 2017

Stormwater Management and Erosion and Sediment Control Approval

Site Development Approval Received‐ Third Quarter CY 2017


PROJECT SCHEDULE

Required Approvals

MDOT SHA expects to have all required permits and approvals by the anticipated advertisement date early in the Third Quarter CY 2020. It is anticipated that the following permits and approvals will be needed in addition to NEPA documentation and approvals.

Design and Construction Schedule

All pre‐construction activities can be completed prior to September 30, 2020. Design for the project is expected to be 90 percent complete in Third Quarter CY 2018. Construction will begin by the Fourth Quarter CY 2020, quickly upon receipt of the grant, and is scheduled to be completed in Third Quarter CY 2023. Right of way acquisition is needed for project implementation, including a temporary construction easement and a `utility easement. The project is at 65 percent design and MDOT SHA is on schedule. The following milestones are scheduled for project progress and completion:

Local Planning

The most recent Priority Letter for the FY 2018‐2013 Consolidated Transportation Program for Carroll County indicates the original streetscape project was being planned by MDOT SHA and the Town as early as 2002. The New Windsor Community Revitalization Project will help meet goals the set forth in the New Windsor Community Comprehensive Plan (Comprehensive Plan) that specifies action items aimed at increasing and enhancing the safety, community cohesiveness, historic character and economic viability of the Town. One of these action items

Final Review (90% design)‐ Third Quarter CY 2018 Town Start Waterline Construction‐ Fourth Quarter CY 2018 Town Complete Waterline Construction‐Fourth Quarter CY 2019 Right of Way Clear‐ Fourth Quarter CY 2019 Start PEPCO & Verizon Relocation‐ Fourth Quarter CY 2019 Plans, Spec and Estimate‐ Third Quarter CY 2020 Stormwater Management and Erosion and Sediment Control Approval ‐ Final Approval anticipated by Third Quarter CY 2020 Utility Clear‐ Third Quarter CY 2020 Advertisement Date‐ Third Quarter CY 2020 Bid Opening ‐ Fourth Quarter CY 2020 Notice to Proceed – Fourth Quarter CY 2020 Completion – Third Quarter CY 2023

Right of Way Clear‐Fourth Quarter CY 2019

Stormwater Management and Erosion and Sediment Control Approval ‐ Final Approval anticipated by‐ Third Quarter CY 2020

Utility Clear‐ Third Quarter CY 2020


involves promoting Main Street Revitalization to enhance economic viability of the Town Center. This project will directly address this need for revitalization, as well as preserving the historic character, and enhancing safety in this Town. State and local approvals on which the project depends demonstrate the project is broadly supported. As demonstrated in its support letter, the Baltimore Regional Transportation Board (BRTB), which is the Metropolitan Planning Organization for the region, is fully supportive of the project. The BRTB has also committed to adding the New Windsor Community Revitalization Project to the Baltimore Region TIP upon award. State of Maryland and local planning are key to ensuring critical projects are prioritized for State of Maryland and local funding. In Maryland, the transportation plan sets the vision for addressing the transportation needs of the future and lays the groundwork for successive plans that recommend fiscally‐constrained projects for the state transportation improvement program (STIP).

ASSESSMENT OF PROJECT RISKS AND MITIGATION STRATEGIES

MDOT SHA is tasked with building, operating, and maintaining the state’s transportation infrastructure, specifically their highways, transit, maritime, rail, and aviation facilities, and Motor Vehicle Administration, all of which are funded by Maryland’s Transportation Trust Fund (TTF). The Transportation Trust Fund is separate from the State’s general fund and its revenues are dedicated to improving and operating Maryland’s transportation network. MDOT SHA is one transportation business unit within MDOT, and has extensive experience managing grants. MDOT SHA will use its vast experience with both capital construction projects as well as federal grants to assess all project risks and implement mitigation strategies. MDOT and MDOT SHA has a demonstrated record of efficient, responsible TIGER fund expenditure. Most recently in 2014, the agency received a $10 million TIGER grant to enable a highway widening project on MD 175 from Disney Road to Reece Road. The project has adhered to its proposed schedule and budget, with construction advertisement in June 2016, Notice to Proceed granted in November 2016. The project is at 17 percent construction completion to date, with an estimated opening date of December 2019. The project’s sources and uses of funds, detailed in Section IV, include stable and reliable financial commitments. MDOT SHA has shown its support of the project by committing to contribute approximately $4.8 million of the approximately $9.9 million total project cost, which is a conservative cost estimate that includes the more expensive option for intersection improvements. MDOT SHA will serve as the lead agency in charge of administering the TIGER IX discretionary grant funds. Upon approval of this TIGER discretionary grant application, MDOT will allocate the funding necessary to cover the balance of the project to ensure 100 percent funding for project construction. MDOT will update the its Consolidated Transportation Plan to budget the funds to


meet the project schedule. BRTB has also committed to adding the funds from the TIGER discretionary grant immediately to the regional transportation improvement program (as discussed previously), should the New Windsor Community Revitalization Project be awarded the discretionary grant. While MDOT SHA anticipates allocation of the full funding for the project’s matching costs, there could be a funding shortfall due to austerity measures at the State, local, or federal level. SHA would adjust its capital budget to ensure sufficient funding is available to complete the project within the calendar parameters of the TIGER discretionary grant so that the grant funds would not be lost. Delays to the review of permitting applications or final designs, as well as increased costs of construction material, are just some of the risks that could adversely affect the project schedule. MDOT SHA closely coordinates with permitting agencies to ensure submissions are being reviewed promptly. If necessary, review delays would be escalated to highest level at MDOT SHA—to the Administrator—to address with counterparts at review agencies. For example, MDOT SHA has included ample time in the project schedule to secure the right of way required to complete the project; however, if necessary MDOT SHA will utilize eminent domain quick take methods so the project can be started on or before the currently scheduled start date. Additional risks such as unforeseen weather‐related delays could create delays. MDOT SHA plans to mitigate this risks by including completion calendar dates and incentives for on‐time or early completion in construction contracts, as well as disincentive clause for not meeting project schedules. This is a straightforward project with no structures, and therefore MDOT SHA does not anticipate unforeseen delays.

VII. BENEFIT COST ANALYSIS


VII. BENEFIT COST ANALYSIS

A benefit‐cost analysis (BCA) was conducted for the New Windsor Community Revitalization Project for submission to USDOT as a requirement of a discretionary grant application for the 2017 TIGER discretionary grant program. The analysis was conducted in accordance with the benefit‐cost methodology as recommended by the USDOT in the 2017 TIGER Benefit‐Cost Analysis Guidance. The period of analysis corresponds to 23 years from today and includes three years of construction and 20 years of benefits after operations begin in 2023. Overall, the project generates a Benefit Cost Ratio (BCR) of 1.08 in the case of a 7percent discount rate, subject to further enhancement with incorporation of additional operation and maintenance (O&M) values. The resulting benefits are substantial considering the project’s location in a rural area and its projected contribution to economic development/ competitiveness. Moreover, there are additional benefits that were not quantified as part of this analysis to remain conservative in completing the analysis. The project improvements will generate a decline in stormwater pollution, positive job creation during construction, and a significant decrease in operational cost savings when compared to the “do‐nothing” alternative. Moreover, the development of dedicated and reliable pedestrian infrastructure is projected to generate significant economic benefits in the form of increased property values which will serve as a boon to the area’s residents.

COSTS

The capital cost is expected to be approximately $9.9 million in undiscounted 2016 dollars through 2023. At a 7 percent, real discount rate, these costs are approximately $8.0 million. Because the useful life of the assets exceeds the analysis length by five years, there are no rehabilitation or replacement costs over this period.

BENEFITS

In 2016 dollars, the project is expected to generate approximately $8.7 million in discounted benefits using a 7 percent discount rate. The project’s pedestrian improvements are expected to lead to increased pedestrian trips which in turn generate positive health benefits for society, recreational benefits, and decreased auto usage. The development of the project is expected to aid in the growth of the area by improving mobility for existing and new users, as well as increasing property values for residents. The increased property values will assist the community in achieving its economic potential, as these benefits directly translate into positive wealth effects. This is an important component of the project as the study area is rural and lagging in economic performance. In addition, pursuing this project is expected to generate cost savings in the form of avoided O&M expenditures. Other benefits for the project’s completion that are not readily quantifiable include the reduction in stormwater pollutant loading into the area’s waterways which would make the area more fishable, swimmable, and enjoyable for residents and visitors to the area.

VIII. COST SHARE


VIII. COST SHARE

The New Windsor Community Revitalization Project funding share from MDOT SHA is stable and dependable, as explained above in Section IV. Grant Funds, Sources, and Uses of Project Funds. The project parties have the resources and commitment to construct, maintain, and operate the infrastructure funded under this project. The State of Maryland is committed to maintaining its record of prudent fiscal management while supporting and promoting Maryland’s continued economic growth. Consequently, this TIGER IX funding package submitted under New Windsor Community Revitalization balances MDOT SHA’s fiscal constraints with its commitment to funding this critical project or local, regional, and national significance. The New Windsor Community Revitalization Project cannot be completed without a TIGER Discretionary Grant. Despite a large capital program, MDOT SHA has fully committed its federal formula and other funds to other competing needs around Maryland. The TIGER discretionary grant award will unlock a magnitude of positive safety, economic competitiveness, state of good repair, and quality of life impacts. By supporting and advancing the development and employment opportunities in the area, TIGER IX discretionary grant funds will facilitate a project that will preserve and enhance the economic strength and competitiveness of the Town and the region, and serve as a national example of how a Main Street transformation can support other rural towns in Middle America.

new community revitalization tiger grant application · of storm drains or the installation of...

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