CENTRAL - Downtown Atlanta · Atlanta Transportation Study (CATS). The study is one element of a...

CENTRAL ATLANTA TRANSPORTATION STUDY

TABLE OF CONTENTS

Foreword........................................................................................................................ 1

Study Objectives ........................................................................................................... 2

Study Process ............................................................................................................... 3

Findings and Recommendations................................................................................. 5Roadway/Parking ................................................................................................. 5Transit ................................................................................................................ 10Bike/Pedestrian/Environment ............................................................................. 13Policy.................................................................................................................. 15

Implementation Action Plan ....................................................................................... 17Immediate Implementation Projects ................................................................... 17Second Tier Projects .......................................................................................... 18Third Tier Projects .............................................................................................. 18


Page 1

Central Atlanta Progress, in conjunction with a number ofpublic and private organizations, conducted a transportationplanning study of the Central Atlanta area – the CentralAtlanta Transportation Study (CATS). The study is oneelement of a larger study of the Central Atlanta area, theCentral Atlanta Action Plan (CA2P). The CATS study was acollaborative effort between a consultant team includingDames & Moore, Day Wilburn Associates and CRAConsulting. Georgia Institute of Technology contributed theservices of Mr. H. Randal Roark, AIA, AICP to assist theproject team. The CATS study was also coordinated withthe concurrent preparation of a Bicycle and PedestrianFacility Master Plan, conducted by MDG, Inc. under aseparate contract with the PATH Foundation. Funding forthe CATS study was provided through a combination ofcontributions by CAP members both public and private andadditional public funds through the Atlanta RegionalCommission.

The CATS study updates the previous DowntownTransportation Management Study completed in 1988. Thisupdate was needed to re-evaluate transportation strategiesbased on more recent development and travel trends. Inparticular, the imminent redevelopment activity on thewestern side of downtown required an assessment of currentand planned transportation systems. The CATS studyassesses current transportation conditions and addressesanticipated future mobility needs within the areas ofredevelopment and throughout the entire Central Atlantaarea.

The CATS study is documented in two reports. TheSummary Report presents an overview of the study processand the findings and recommended Implementation ActionPlan. A separate Technical Appendix documents the dataobtained or collected during the study.

Foreword


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The CATS mission is to support a balanced, complete andintegrated transportation system that encouragessustainable development patterns in central Atlanta. Thismission is accomplished through achievement of specificstudy objectives:

• reinstate surface street continuity,• balance street capacity with development systems and

circulation needs,• maximize transit activity,• encourage walking,• provide for bicycles,• plan for future parking needs,• manage special events,• develop painless alternatives for mobility between

Atlantic Steel and GWCC and destinations between,• support construction of a centrally located multi-modal

station, and• aggressively pursue community support and funding for

short range projects needed.

Study Objectives


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The CATS study area lies within the City of Atlanta and isroughly bounded by I-75/85 to the east, I-20 to the south,Northside Drive/Howell Mill Road to the west and BrookwoodStation to the north.

The complexity of this area and its transportation systemrequired an innovative, two-phase study approach. The firstphase involved a broad-based examination of existing andfuture conditions to identify proposed transportationstrategies and the appropriate next steps to refine or pursuethose strategies. This draft Conceptual Transportation Plandocuments the results of the Phase I effort. Phase II ofCATS will focus more detailed analyses where necessary torefine draft concepts and pursue specific implementationactivities.

Phase I of CATS included the following general studyprocess:• Solicit stakeholder input,• Obtain available studies, plans and data,• Study team review of data and issues,• Study team assessment and conceptual

recommendations,• Identify next steps for each recommended action, and• Document study findings.

The CATS Phase I began with a stakeholder workshop.Participants included representatives from area businesses,property owners, developers, Georgia DOT, MARTA, City ofAtlanta, Atlanta Regional Commission, Midtown Alliance andothers. Interviews were also conducted with stakeholderswho did not participate in the workshop in order to completea comprehensive input process. The input received includeda long list of both issues and opportunities, and createddirection for the Phase I study.

The study consultants then obtained and reviewed availablestudies, plans and data describing the land use andtransportation characteristics of the area. Informationcompiled included traffic and transit data, land use plans,future travel estimates, currently planned infrastructureimprovements and parking information. The study teamconducted additional field reconnaissance to confirm andsupplement this data. An inventory of planned developmentactivity was also conducted. This inventory created a mapand database of all major development activity within the

Study Process


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study area. The data obtained and collected is included inthe Technical Appendix.

The study team reviewed the study issues, input received,data obtained and previous studies. This review was firstconducted independently, then as a collective study team.The study team combined its extensive and diverse localexperience to identify specific transportation needs andpotential solutions. The analyses relied primarily onprevious studies and data. Finally, the study process,findings and recommendations of CATS Phase I aredocumented in this report. The resulting needs andrecommendations are outlined in the following sections.


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The following section summarizes the study findings andrecommendations. These are summarized in the areas ofroadway/parking, transit, bike/pedestrian/environment, andpolicy. This section includes general recommendations,while specific recommended actions are recommended inthe final section – Implementation Action Plan.

Roadway/Parking

Findings

Management of the existing transportation system capacityis an important issue that re-surfaced throughout the studyprocess. And, improved utilization of the existinginfrastructure often represents a cost-effective improvementstrategy. The benefits of improved management wereapparent in Central Atlanta during the 1996 Olympic Games.Atlanta demonstrated that coordinated management ofvarious transportation systems provides dramaticallyincreased capacity to efficiently move people and goods.

Several good examples of system management are currentlyin operation, including MARTA’s shuttle service to AtlantaBraves baseball games and Georgia DOT’s AdvancedTraffic Management System – which provides up-to-datetravel information, travel advisories and coordinated incidentresponse. However, improved system management wouldbe beneficial in other areas including traffic signaloperations, special event traffic control and utilization ofexisting roadway capacity.

The Central Atlanta area hosts frequent special events thatpose unique demands on the transportation system. Thesespecial events are more irregular and varied in traveldemands than events such as recurring baseball games.For example, events at the Phillips Arena, Georgia Dome,Georgia World Congress Center and Centennial OlympicPark take place at varied times of day and can runconcurrently or overlap. These special events pose uniqueand varied demand on the transportation system. Improvedmanagement of these special event travel demands isneeded to utilize the existing system most effectively.

A variety of special event traffic and parking controlscenarios should be developed and implemented based onthe specific event scenario. Updated traffic signal timing

Findings andRecommendations

Systems management

Special event traffic


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should be developed and implemented throughoutdowntown. The person-carrying capacity of select corridorsshould be maximized through conversion of existing travellanes for reversible use, HOV, bus-only or other mode asappropriate. These strategies should be considered foreither temporary or permanent operations as appropriate.

The continuity of the existing transportation system wasfound to be deficient in several areas. Major roadwaysterminate at illogical locations. One-way streets, such asSpring Street and Techwood Drive, should generally be usedin a system and should have logical termini. Continuousmajor arteries are important to providing a logical streetnetwork. Similar concepts should also be applied to futurechanges in the transit system. Long, simple transit routesare more user-friendly than routes that make numerous turnsor are not long enough. Future changes in the streetnetwork or transit system should place high priority onestablishing or maintaining system continuity.

A review of the overall street network configuration andtravel movements identified some interesting characteristics.Within the downtown business district, a modified gridsystem currently exists. However, east-west mobility isseverely deficient as compared to north-south mobility. Thetraffic signal operations favor north-south movements,making east-west travel difficult. I-75 and the railroad limitthe east-west connections in certain locations. Improvedeast-west mobility is needed through improved corridors andupdated signal operations.

North-south connections north of North Avenue and west ofI-75 are deficient. Within the study area, the only north-south connection north of North Avenue is Northside Drive(US 41). In this area, Georgia Tech creates an obstacle tonorth-south mobility. Critical improvements to the NorthsideDrive corridor are necessary to meet future mobility needs.(This general area includes the pending Atlantic Steeldevelopment.)

Currently, the functions of service and loading are quitevaried. Certain large facilities have self-contained off-streetloading, including the Inforum, Atlanta Journal-Constitution,large hotels and others. In many areas of downtown, serviceand loading vehicles park on the street. However, thesefunctions are often performed in designated “No Parking”

System continuity

East-west movement

Northside Drive

Service and loading


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areas or from through-travel lanes. These functions areimportant to maintaining vibrant business activity downtown,and must be accommodated. These functions should beaccommodated and performed in a manner that does notimpact the safe and effective mobility of other street users.

The planned Multi Modal Passenger Terminal will beconstructed near the corner of Spring Street and MartinLuther King, Jr. Drive. This facility will provide an interfacebetween commuter rail, bus, and rapid rail (MARTA) indowntown Atlanta. Accessibility to this facility will be criticalto its long-term success. Superior accessibility should besought for all modes, including auto, bus transit (intercity andlocal), rail transit, pedestrian and bicycle.

Through downtown, Techwood Drive and Spring Streetcreate a one-way pair system. These routes are importantfor connections to I-20 and I-75, and to north-south mobilitythrough downtown. This system is currently incomplete anddisjointed. The connectivity from Techwood Drive to I-20lacks a direct route to the south. At the northern end of thepair, Techwood Drive changes from two-way to one-waywithout a strong connection from the northbound side of thepair (Spring Street).

The Georgia DOT proposal to extend Techwood Drive toSpring Street addresses the deficiency at the southern endof the system, but the City of Atlanta opposes the currentconcept due to resulting impacts near the Castleberry Hilldistrict. An improved connection is needed, and analternative solution is being explored. An interim solutionhas been implemented by the City and Georgia DOT thatutilizes Martin Luther King, Jr. Drive to connect betweenTechwood Drive and Spring Street. The Georgia DOT andCity of Atlanta have recently announced plans to re-evaluateother alternatives.

The northern end of the Techwood/Spring one-way pairsystem provides continuity with the Spring Street/WestPeachtree one-way pair system through midtown. However,Techwood Drive changes from two-way to one-way atAlexander Street without a strong connection fromnorthbound Spring Street. Furthermore, the ramps, to andfrom I-75 at Williams Street, lack direct connection(s) to theTechwood/Spring one-way pair. Currently, there are noproposals to address these deficiencies.

Techwood Dr/Spring St

Multi Modal PassengerTerminal


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The Techwood Drive/Spring Street one-way pair system hasthe potential to provide a major role in north-south travel.However, this system needs to be refined and completed.The CATS study team developed several alternates andconcluded that a more in-depth study of these specificissues, including connectivity to the Williams Streetinterchange, was needed.

The City and Georgia DOT are continuing their efforts toidentify an agreeable solution. The City has recentlychanged M.L.K. Drive to a two-way street between SpringStreet and Techwood Drive as an interim arrangement whilea permanent solution is developed.

The connectivity of Northside Drive to I-20 was reviewed. Aspreviously mentioned, Northside Drive provides a criticalnorth-south corridor to future mobility demands between I-75and I-20. The current connection from Northside Drive to I-20 is indirect and insufficient to meet future demands. Adramatic improvement to interstate access and mobilitythough this corridor should be further evaluated.

The current supply and utilization of downtown parking wasreviewed from available data and through field observations.Generally, the Central Atlanta area provides an adequatesupply of parking. There are specific areas where parking isless available, but can be accommodated within anacceptable walking distance. For example, parking demandin the government services district (near the State Capitoland City and County offices) often exceeds adjacent supply,but parking can normally be found within several blocks.However, available parking is not well signed for visitors.

Currently, most parking facilities are privately owned andoperated, and offer some combination of public and permit-only parking. Designated public parking facilities areprovided only at Underground Atlanta and adjacent to CNNCenter and the Georgia Dome. The dispersed location ofother public-accessible parking makes signing difficult.

Surface lots are disappearing as infill and redevelopmentoccurs. While elimination of surface parking lots is desirablefor many reasons, it has the effect of reducing the supply ofpublic-accessible parking. New developments tend toprovide parking only for patrons and limited visitor parking.

I-20 Access

Parking


Page 9

As infill and redevelopment continues, the desired totalquantity of parking should be evaluated and monitored by aTransportation Management Association (TMA) or otherdowntown authority. The potential need for designated andwell signed public parking, and concepts such as sharedparking, should also be evaluated.

Recommendations

• Update traffic signal operations• Improve event traffic management• Reconstruct and improve Alexander Street east-west

corridor• Enforce No-Parking regulations• Identify and implement solution to Techwood Extension• Improve access to I-75 from Spring Street and Techwood

Drive• Investigate long-term needs in the Northside Drive

corridor from I-75 to I-20• Improve signage to visitor/public parking• Evaluate potential need for designated public parking

areas• Encourage on-street parking only where short-term

parking is compatible with adjacent land uses• Creation of a Transportation Management Association

(TMA)


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Transit

Findings

Downtown Atlanta is served by MARTA rail and bus transit.The MARTA rail system provides the backbone for theregions transit system. This system radiates from downtownto the north, northeast, east, south and west. This system isdesigned primarily for movements to and from the centralcity. In addition to MARTA rail and bus service, servicesfrom suburban counties include express bus from CobbCounty and vanpool service from Douglas County. Fourmajor local shuttle programs also operate within downtown.These are discussed further in the Technical Appendices.

Several extensions of the MARTA rail network are currentlyplanned or under consideration. Among the proposals is alight rail line from the Arts Center station, through the AtlanticSteel site to the Cumberland area in northwest Atlanta. Inaddition, MARTA has considered the feasibility of aconnection from the North Line to Emory, Decatur andthrough south DeKalb County. The line would interface withthe north line at the Lindbergh or Arts Center station. Theseproposals are still under consideration.

Other planned additions to this transit system includecommuter rail that will terminate at the Multi ModalPassenger Terminal and additional suburban bus systemsincluding express routes to downtown. The HOV systemprovides the likely routes for express bus systems to accessdowntown, and is currently being expanded into suburbancounties.

An overall assessment of transit service to and withinCentral Atlanta suggests that additional improvements areneeded to better serve development areas and increasingtravel demands.

Improved circulation is needed in downtown, midtown andwithin emerging activity centers. The MARTA rail systemexcels at moving people to downtown and other high densityareas, but does not serve neighborhoods or points of originvery well. In downtown, the local bus routes are designedfor travel from point-to-point, rather than circulation withindowntown. The Central Atlanta transit system shouldprovide three interconnected types of services: 1) long trips

Circulation


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(rail and express bus), 2) corridor movements (local andshuttle bus), and 3) circulation within downtown (fixed routecirculator).

Improved intermodal connectivity and transfer and terminalfacilities will be needed as the transit system is expanded.MARTA’s Five Points and Arts Center stations provideexamples of how local bus currently interfaces with rail. Theplanned Multi Modal Passenger Terminal will provide animportant interface with commuter rail. Additional andexpanded facilities are necessary including potentialcirculation systems, bicycle facilities and parking facilities.

Existing and potential future transit service to high growthareas west of downtown were also evaluated. The plannedAtlantic Steel development is being designed as a TransitSupportive Development. Transit connections from this areato midtown and downtown will be very important. Initially,this mixed-use development will be linked to MARTA’s ArtsCenter Station via a shuttle bus system operating primarily ina dedicated facility. The ARC’s current draft RegionalTransportation Plan includes a planned rail extension fromArts Center, through Atlantic Steel and ultimately to CobbCounty to the northwest.

Initial review of certain west side transit alternativessuggests that a separate north-south rail corridor west of I-75 would compete with existing rail through midtown if theNW extension connects to the Arts Center station. Oneviable alternative would be to create a high capacity buscorridor from Atlantic Steel to downtown within, or along, theNorthside Drive corridor, potentially accessing the MultiModal Passenger Terminal. A second viable alternativewould terminate the NW rail extension at the Multi ModalPassenger Terminal rather than the Arts Center station.This alternative would be adjacent to Atlantic Steel in theNorthside Drive corridor and serve other emergingdevelopments west of downtown. These and other potentialalternatives are influenced as much by long distance trippatterns from outside Central Atlanta as by local trip making.

Connections

Serving growth areas


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Recommendations

• Create downtown circulator systems• Create on-street bus-only lanes in high demand corridors• Establish shuttle from Atlantic Steel to Arts Center• Pursue NW rail line serving Atlantic Steel to either Arts

Center or Multi Modal Passenger Terminal


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Bike/Pedestrian/Environment

Findings

Bicycle, pedestrian and urban environment elements of theCATS study are interwoven with other urban designcomponents of CA2P. The CATS effort focuses primarily onthe overall transportation system, rather than specific designfeatures. This analysis provides a system of thereview/analysis of sidewalks and bicycle facilities andassesses how these facilities contribute to othertransportation modes.

A field review of existing sidewalk conditions confirmed thatcentral Atlanta is walkable in terms of building density andcontinuity of sidewalks. There are some very goodexamples of pedestrian facilities, particularly the PeachtreeStreet and International Boulevard corridors that wereimproved in preparation for the 1996 Olympic Games.

The pedestrian signage and wayfinding kiosks alongPeachtree Street and International Boulevard are excellent.However, more of these types of pedestrian features andsigning are needed, as shown in Exhibit 5.

Several deficiencies were noted during a field review ofexisting sidewalk conditions. Maintenance of existingsidewalks need improvement. In particular, the replacementof sidewalks following utility repair is generally not performedto the standards and quality of the original installation. Inaddition, adequate resources to repair and maintainsidewalks are needed.

Accessibility for the physically challenged is not consistentlyprovided throughout downtown. Sidewalk clutter (i.e.newspaper stands, sandwich board signs and illegallyparked cars) also presents an obstacle to pedestrianmobility.

There are currently very few bike facilities in downtown. Bikelanes are limited, and bike parking is virtually non-existent.Therefore, bicycle trip making is limited to a relatively few bravecommuters and bike messengers. There is potential forsubstantially more bicycle trip making in central Atlanta becauseof relatively short trip lengths and mild winters, however, a more

Walkable downtown

Maintenance

Bicycle system


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comprehensive system of bike lanes, parking and storage areas isneeded.

Recommendations

• Implement pedestrian treatments in all primarypedestrian corridors

• Provide additional pedestrian wayfinding signage• Improve sidewalk maintenance process• Construct additional pedestrian amenities in select areas• Implement bicycle system plan (see MDG/City of Atlanta

Bike Plan)


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Policy

The study team addressed several broad issues that relateto general policies, implementation process, standards andguidelines. While these issues do not relate to specificimplementation projects, they are important to create theproper framework for implementation of specific plannedimprovements or programs.

Findings

Funding transportation strategies and programs is a veryimportant issue to implementation of this recommendedPlan. Transportation programs and projects can be verycostly, involve several jurisdictions and agencies, andfunding can be very complicated. Although state and federalsources may be available for certain types of projects, alocal funding match is usually required. Furthermore,securing transportation funds is a complicated processrequiring a coordinated effort among many agencies.

A mechanism for coordinating policies and seeking fundingfor programs and projects is very important. CAP hashistorically worked very closely with the City of Atlanta in thisregard. This continued close coordination will likely have toexpand in the future to involve Georgia DOT, ARC, MARTA,GRTA and others to achieve ambitious, multi-modalimprovements needed in central Atlanta.

Throughout the CATS process engineers, planners,architects and urban planners have discussed and debatedspecific design aspects of the transportation system. Thisnecessary and worthwhile dialogue points to the lack ofdefinitive design standards and guidelines for a downtownarea. For example, the standards required of highwayengineering are often contrary to the urban design objectivesdesired by architects and urban planners. The processcurrently lacks clear downtown design standards andguidelines for each mode (auto, truck, pedestrian, bicycle).

Funding

Coordination

Design standards


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Recommendations

• Form a Downtown Transportation ManagementAssociation (TMA)

• Expand CID to include transportation• Work with the City of Atlanta to develop downtown design

standards/guidelines• All future transit studies to involve City, MARTA, GDOT,

ARC, GRTA, institutions and major corporations


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The recommendations described in the previous section areimportant from a planning perspective because theydescribe how to improve downtown through improvements inthe transportation infrastructure and planning process.However, an action plan is necessary to realize any of thoserecommendations.

Implementation of the recommended strategies may requireaction from the private sector, City of Atlanta, Fulton County,Georgia DOT, MARTA, Georgia Regional TransportationAuthority and/or other parties. In most instances, many ofthese parties must cooperate to achieve a goal. Thefollowing Implementation Action Plan suggests actions forthe private sector to take through CAP to work toward thisPlan’s vision. The recommended actions are described asImmediate Implementation Projects, Second Tier Projects, orThird Tier Projects based on priority.

Immediate Implementation Projects

1. Perform traffic signal timing study to improve east/westflow on Baker/Harris, International/Ellis, and MLK/Mitchell

• consider inclusion of event traffic plans• approach City and GDOT regarding funding

2. Reconstruct Jones/Alexander/Simpson corridor• complete concept development and prepare Concept

Report• prepare necessary environmental documents• prepare design plans• obtain funding for design (private sources) and

construction (ARC/GDOT)3. Evaluate Techwood Drive/Spring Street traffic operations

• conduct detailed traffic operations study• assess interim one-way pair operation• assess operational compatibility with CBD signal

system• finalize Operations Plan for implementation• request inclusion in next TIP

4. Resolve Techwood/Spring Extension• revisit alternatives, develop concepts, and revise

Concept Report• work with GDOT and City to achieve consensus• design and construct (funded in RTP)

5. Implement Transit Circulators/Shuttles• consolidate and/or expand existing shuttle operations

ImplementationAction Plan


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• provide additional shuttles for newdevelopment/redevelopment

• prepare implementation plans for CBD and westsidecirculators

• fund through CMAQ, TMA, CID, Activity Center, orother sources

6. Implement Wayfinding Program• expand existing pedestrian signage installed by

CODA prior to the Olympics• develop a vehicular signage program to complement

pedestrian signage system• develop a comprehensive wayfinding program

incorporating signage elements• fund through CAP and City

Second Tier Projects

1. Reconfigure I-75/Williams/Techwood/ Spring Interchange• evaluate design alternatives through City or private

funds (immediate)• request design and construction funding through ARC• implement (long term)

2. Locate and implement bus-only lanes• conduct concept and feasibility study in coordination

with City, MARTA, GDOT, ARC and GRTA (MARTAand private funding)

• identify sponsor(s) and funding• design and construct

3. Identify Northside Drive corridor improvements• GDOT to conduct coordinated study with City,

MARTA, ARC and GRTA• input to regional planning process• plan, design and construct

Third Tier Projects

1. Support Northwest Rail Transit• Pursue GRTA funding to expand Cobb CID study into

City to Arts Center Station• ARC/MARTA/GRTA to conduct location studies under

next TIP• Request ARC/MARTA/GRTA consider south

extension to Multi Modal Passenger Terminal

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