City of San antonio Approved by City CouNCil November 2012 UrbanBiology LLC design + planning for a living world www.urbanbiology.net Table of ConTenTs noVember 2012 Section one | A FoundAtion For the Future Section two | recommendAtionS oF the downtown trAnSportAtion Study (dtS) The Objectives of the Downtown Transportation Study ............................................................1 Benefits of the DTS Recommended Projects ................................................................................41 What is Different about this Study? ....................................................................................................2 Broadly Defining the Recommendations ......................................................................................41 Guidance for Future Transportation and Land Use Projects .....................................................4 The Primary Components of the DTS ..............................................................................................42 Setting the Stage: The Context of San Antonio’s Downtown ..................................................4 Overview of Recommendations .......................................................................................................44 Getting Around in Downtown San Antonio Today ..................................................................... 7 Improvement Concepts Evaluated but Not Recommended ..................................................83 The Design of Streets – Standards and Regulations ..................................................................16 Section Four | downtown Street deSign Section two | the ViSion For downtown A Framework for Great Streets ............................................................................................................85 SA 2020’s Goals and Targets for Downtown .................................................................................19 Downtown San Antonio Street Types .............................................................................................87 Introduction to the Downtown Growth Areas ............................................................................20 Design Guidance ......................................................................................................................................................107 The Fundamental Needs of Downtown Residents .....................................................................20 Assessment of Growth Area Transportation Choices ................................................................23 Section one: a FounDation For the Future The Downtown Transportation Study (DTS) was commissioned by the City of San Antonio in support of Mayor Julián Castro’s vision for transportation and lifestyle in the Downtown as outlined in SA 2020. As the Mayor stated, “The next months, the next years are about doing... about putting action to the ink on paper.” The community indicated transportation needs to be improved first and an additional priority is improving Downtown. The DTS identifies how to create what the community has envisioned. The project was managed by the Capital Improvements Management Services (CIMS) with participation from Center City Development Office (CCDO). The ObjecTives Of The san anTOniO DOwnTOwn TranspOrTaTiOn sTuDy In order to accomplish what the community and the Mayor have envisioned in SA 2020, the following objectives have been identified: z Advance the goals for Downtown established in SA 2020 and the Strategic Framework Plan z Develop transportation improvements Source: SA 2020 Final Report, March 2011 that support a sustainable, vibrant, world-class Downtown z Develop street improvement guidance that keeps pace with an ever-evolving Downtown z Recommend near-term capital improvements to catalyze growth z Enhance San Antonio’s unparalleled hospitality trade The next months, the next The objectives can be achieved through implementing improvements doing... years are about that address the following: z Transform Downtown about putting action z Encourage economic development to the ink on paper. z Improve access to/from Downtown z Improve circulation within Downtown and connections to adjacent areas, and the River Walk z Provide multi-modal choices MayOr julián casTrO on the sa 2020 initiative San antonio Downtown tranSportation StuDy | Section one | page 1 The public invOlveMenT prOcess public MeeTing #2 – jOinT public MeeTing wiTh heMisfair cOMpleTe sTreeTs The DTs incOrpOraTes The The public involvement process communicated key messages throughout the project. fOllOwing key iDeas: This meeting was held at the Institute of Texan Cultures on March 6, 2012. The DTS At start-up, the community was introduced to the project, its objectives, scope and z Downtown streets should be designed and managed project team presented alternative concepts for several downtown streets including study area. A project website was created to allow for continuous access to project as multifunctional spaces that support social and the five 2012 Bond Downtown Street projects, placemaking opportunities, and the information and to provide a portal for receiving public comment. Stakeholders economic activity as well as moving traffic. initial list of recommended street types with overlays. An open house format allowed were identified, contacted and, in some cases, met with directly to present project for attendees to obtain more information and have specific questions answered. z Streets will be improved so that walking and cycling are ideas and information. In addition to the public, City staff was apprised through Comment cards, the project website address, and the public information telephone increasingly attractive and increasingly practical ways to three substantive meetings including participation in workshop exercises, and the get around. number were provided. Additionally, the public was invited to participate in an online Steering Committee was kept abreast through meetings, monthly updates and via survey, developed in coordination with the public engagement effort, and advertised z Accessibility – people’s ability to easily reach their access to a password-protected section of the project website. In addition, monthly at the public meeting. destinations will be a focus in order to make walk, bike presentations were given to the Infrastructure and Growth Committee comprised and drive trips increasingly convenient. of five members of the City Council. The Infrastructure and Growth Committee has public MeeTing #3 – final public MeeTing z Major development and re-use investments should responsibility for oversight of policies related to transportation, roads, sidewalks, The final public meeting was held at the Central Library Gallery and Auditorium on be coordinated and implemented with DTS project infrastructure, and VIA Transit. Following is a summary of the project meetings. April 30, 2012. The DTS project team presented the final concepts for downtown street recommendations, street design guidance, and Detailed reports can be found in the Appendices. improvements including the five 2012 Bond Downtown Street projects, placemak- accessibility priorities. public MeeTing #1 – “3 prOjecTs, 1 MeeTing” ing opportunities, and the initially approved list of street types and overlays. An open z Taken together, the impact of the DTS will be to house format allowed for attendees to obtain more information and have specific strengthen the Downtown’s transportation system in This public meeting was held early in the project timeline, on November 29, 2011 with questions answered. Comment cards, the project website address, and the public accommodating growth and improvements in order to HemisFair Park Area Redevelopment Corporation and VIA Metropolitan Transit at the information telephone number were provided. sustain its central role in Downtown San Antonio. Central Library Gallery and Auditorium. The DTS project team introduced the project and asked for preliminary community input on needed street improvements. An open house format allowed for attendees to obtain more information and have specific whaT is DifferenT abOuT This sTuDy? questions answered. Comment cards, the project website address, and the public information telephone number were provided. a cOnTexT sensiTive TranspOrTaTiOn plan sTakehOlDer MeeTings The San Antonio Downtown Transportation Plan recommends improvements that are context sensitive. A context sensitive transportation improvement is one that comple- Stakeholder meetings occurred throughout the process with a concentration of ments and supports the surrounding land uses, visually, functionally, and in its scale. them conducted in conjunction with the City’s HemisFair Complete Streets effort. A context sensitive transportation improvement preserves, enhances or incorporates Stakeholders were provided with a presentation of the project, contact information as in its design what the community feels is important and values. well as the project website address. Additional stakeholder meetings were conducted via formal presentations, such as with the Downtown Alliance, the VIA Board of suppOrTing a susTainable fuTure Directors, and the City’s Infrastructure & Growth Committee. Additional meetings Building and securing Downtown’s long-term importance for businesses, visitors, were held with VIA staff, the Cultural Zone, and the City departments of Public Works, government, and residents requires an effective multimodal transportation system. Planning, and the Office of Environmental Policy. The community vision established through the SA 2020 process sets broad goals for the Community involvement City, many of which will have impacts on the transportation system and the public right- in the DTS was facilitated of-way in San Antonio. Through the recommendations in Section 3, the DTS identifies in an open house format; specific capital improvements that address current limitations in the transportation collaboration involved teams from related system and position Downtown for specific investment and development opportunities. initiatives. The street design guidance in Section 4 complements the recommendations by putting in place a system for gradual improvement in Downtown streets that will be made as funds become available and as investments in new development are made. San antonio Downtown tranSportation StuDy | Section one | page 2 Downtown San Antonio Transportation Study Area Boundary whaT is DifferenT abOuT This sTuDy? continued ASHBY Efficiency as the New Capacity O DR AaicCCnotohsten emis csthraaispzogtiaenawordtian nea b1g thi.l n 2y8jiug , F ssoshqiqtgtw uuhouaaaevryrrreeee scr . 1 m im6 tT-i71iehill e,sece tses hho ,nw aePvtvie hetCerhrii alllta iallnyeldr essoget sflemu p tSrdhh iadlyaeinao nsa  w Aa ro2etnnf5 a 2ttr oooc.i0senwa 7cnidn oostw’ eqsmc rauodlpyiaron,er rweiee sgx enmmecdtloioui llogewedfrssi an ln,oe p Agcfsh to srili onarctehatn ae datcrranowes v taa5aaesty t ,sr4 esssq, u shuaeqc iaxmghucrhe aloauw rsmded ae iimnylre-sgis.l e s, POPLARBRAZOS LOCMLUAFBRLUEREDRBAEERRNILCAOKSBURG FLORES MYRTLE SAN PE KCIREVAM SIWELDPLOAEWUPDRAWOHRLEAEYLRNIAM NEDGO HGUOLLUCCM LAHCSAPERIE LEOUCCLUISDTPARK NEWJEOLLSEPHINE ALAMOBROADWAY EVILO GCMRAAARYSSOSOONNN atnitoney d tittwo sN o maercwkoc da oYtemo lrreamkst esCo tdigthayeat’osne gB i2rnoa5crp orcheueaingcst hese isorz leifinn ,M Serea amsnni hidAleaenstntt otoasfnn ar iaoonta’ds jd udwwsootaw ruykn.n eLtdroiskew erv n i2ma 3c ha osnorqeyuu sdhainoaresgw m ana nltiilomdews iv.tn aeInscd, a a csndattrpd eoaietfficito- cne ARDBLEEORLAURGLI ZAPLDAOCE COLORADO SRAN MARCOSIVAS 10 WARMREANRSEHUALCLELILDMIRA QUICNACMYDDEAANLULGASU3ST5A JONES 10TH SDHUEVRAMLAN siltipmya tictoee ad ics o capovmpaoimlartbouldnea.i ttHieeo saw dtoed vwiteiirod, ntehanel rtroreia pisds wnooar tyv lsei khoeircl ycleo tson o sbtnre ut ahc tes in mdeoiwlwa ron lnteoevwse, lno o trfho aeavdr amwilaaebythsle.o Wcdasip tmha cu-st SMMAOLAPINERRRATAEINSLZES CAMARON NSOLEDADAVARRO 5TH6THBROO8KTLHYN9TH BULHRALAMEYSASORN WOLLIW YECNUM Complete Streets initiatives bfSuoetm uurteei l.oi zfe tdh etose a dmdertehsos dinsc croenasseisst ionf vinechriecales itnrigp tsh ine ethffie- LAS MORAS BCUEONMAM VEISRTCAE MEDINA 35 SANTA ROSA SEROLF ST MARY'SMPHEAOCRUATSINNTOTNRAVIS AMO 3RC4DTRHOCKETT MLE KAO EVIL TUNTSEHC HDNBOAUOUWRLSNASTOEONTNN will encourage transit use, ciency of the existing transportation system in Downtown, MONTEREY AL CROCKETT etoinm iccmopourpmorrapvoigevnneeegf swb fAariiodcatkedialeeki td fnuaioowcbsnryeaa ig.ll y i–mrt osyheyw teahsltontpheddi smnb ingy c ludeetaHtodrs eiimi sfemodotg prmlnaweaaaienns-ydraecs dgasfjiivtoo.tag r etit erlroiAoolrmn ey,rn osgm tbiiiansinna agl t a adg dlhnmtxarw hoeaeignmeew l arci ntn tiyeiihndiodzcmsdot etr enoc ed iaenpeanwa pxtotnrgsinwcopfife el sagreeio ,miosn rndarwseadkv i ptsvcgis ertsrphe,rah o iosmr.o v svoicwdnehiaglnleo tox arhgd-sieulmso e esaletdlmnsrriffiyeize go-baieascn nenpptisges .drasa niIwotc pmmahce pitsyetapdhslh r ifro paeyio onectrd rv aoxitd aiedrcwgnettrereergislisetavdre hsysisec ais iwsvr-gli sseooin. t innhas l VGSEUACRBRAAZEONSOADLD FLUPCAIEMRARRLASUUANONPZAEGNODOTAMPSAN MIARCOCSO COMAL SALADOMEDINA CEVFRIOALLLEOONAS CAMPALACMESOARA CRSHEANVAELZ MAINALKAINMG OWINLLIMUAAEDMIVSAOVNTUILRLNITEARCEDARST MARY’SPRESABAERARCLGMEAERROVAAAMRCLRIKEMADIDELGEETRHCORE DREEVFUINGBOWIEEIO37 CENTER YRREHC INVDIIROETIUQSEMIGAWNINAAIAYRREBKCAH OLIVEMARTIWMNNENIPDO YEALVOUNKATMOTHADITENNAARGA KMONUMENTALING giednxreioitmsiwataittnnihvgd eb a soyn wn pd itr lnhol eeevwni sdct itronreuigepr tcsa hngaoeereti tcw rdeaoisns rtoksrif itw ba uulitlstle eebr,dn ei ma altempisvrsoeoen vmngeeo adwdl taaeelnskr dnoa abft thtiilrvieate ynr o msaapnododdwr eteaansyt coi osofyn uts.rr taCaengomsemp wbopiirlkletle atf eutui noSsecntrt., ei Itofeh ntes PENDLETON FURNISH REHMANNORELSACHAPPELLE CFLEASYT SIMON WICGKEUSENTHERADAMSMISSION LOTULSAB STAFFEL BOERNE NEGFEOH DFDELLEOEANSRWSVIEDAEXRARE EVILO PORTER more efficiently.  DStouwdnyt Aorwena ,T Friagnusrpeo 1r-t1ation Study DOLRRNAeIOERKGNAAEgLITTYAOeSLnd CBGPARALYUASLISSTOSTR CLAAMSSBERTFL BAHNEKLENA SCOTA FERRLLKAEENRCSIS 1PROBANDT0 STELVOESNE STAR NOISSIM TLEVESOORHWGIGLVRILOHOIKTLWREVANAEENSLDL PRESA BDORYEBEXERERLKSHIREWEHSIGTFHALL EVILO ENIP HHAIKDAGRAMRVIHGYEAMLTXSANOOBENTYLNNDD BAILEY Study Area MCKAY 0 0.25 0.5 Miles SAN ANTONIO DOWNTOWN TRANSSPaOn RaTnAtToInOioN D SoTUwDntYown tranSportation StuDy | Section one | page 3 guiDance fOr fuTure TranspOrTaTiOn anD lanD use prOjecTs Finally, the study complements these specific projects with a range of flexible guidelines for street improvements. Following analysis of street characteristics and functions, a customized set of street As described above, the Downtown types was developed and each street in the Downtown was assigned a “type.” The street types are Transportation Study is intended to guide flexible to allow developers, the City, residents, and other interested parties to be sensitive to the wide decision-making for long- and short-range range of existing roadway conditions found Downtown, as well as the range of conditions adjacent to transportation-oriented and complementary the roadways. The street types demonstrate how pedestrians, bicyclists, passenger autos, trucks, and projects in Downtown. These improvements will, transit vehicles can share roadways, while creating inviting places for people to explore and enjoy visits in turn, support the Downtown’s transformation to the Downtown and travel throughout the city. into a world-class destination, serving visitors and locals alike. To do that, the transportation system seTTing The sTage: needs to be comfortable for the full range of users The cOnTexT Of san anTOniO’s while providing efficient movement from one DOwnTOwn place to another. This study identifies short-term improvements in the form of projects expected San Antonio is especially known for its historic character. to be funded as part of the 2012 Bond Program. Successful streets respond to and contribute to the places they These will resolve key transportation issues in the traverse. A leafy, narrow street that is appropriate for a residen- Downtown area while transforming the area and tial area may not be appropriate in a more commercial area with Crockett Street serving other users. more pedestrians and transit riders. A context-sensitive street Beyond these short-term priorities, the study examines Downtown’s existing will be designed in a way that responds to community, property- transportation system to review how the system works today and how it could owner, business-owner, and other user and stakeholder input. be improved. Improvements focus on the streets on which people travel, from This input will need to be considered early in the process of the building front to the sidewalk to the street itself. The study identifies long- street design. A context-sensitive street will also be responsive Historic N. Presa St. Bridge, c. 1925 range transportation improvement projects to support the further evolution of to the physical setting in which it is found, including aesthetic, Downtown streets, addressing their design and operation. environmental, scenic, historic, and natural resource values. A street with historic buildings on both sides and mature trees on both private property and the public right-of-way will require a different treatment from one with more modern buildings that is adjacent to a creek or river. The presence of a variety of contexts in the Downtown study area, from historic single-family residential neighborhoods like King William and Lavaca to the intense streets of the Downtown Core like Commerce and Market Streets, means that each street may require different treatment but should strive to Market Street safely accommodate all appropriate users, as established by San Antonio’s Complete Streets policy. The types of users may vary from one street, neighborhood, or community to the next. As a result, there is no prescriptive design standard or single approach to creating great places with great streets. Context sensitive design is increasingly becoming a standard way of doing business. The US Federal Highway Administration Historic San Antonio: Houston Street (FHWA), the Institute of Transportation Engineers (ITE), the American Association of State Highway and Transportation Officials (AASHTO) and many city transporta- tion departments offer guidance on the process and design of context sensitive streets. This practice is supportive of complete streets and placemaking, which are also endorsed by the DTS. 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DSeevrevloS1ipec9mr0ev1eisc neS t sD.a ACneldeap nmBateuorsrtinmesesnt San Antonio, TX 78204 San antonio Downtown tranSportation StuDy | Section one | page 5 Downtown San Antonio Historic Districts ASHBY O R D FREDERI FLORES MYRTLE SAN PE DEWEY NEDGO HGUOLLUCC LAHCSAP LOCUST JOSEPHINE BROADWAY BRAZOS LOCMLUABLURERBAERNLCAOKSBURG KCIREVAM SIWELLAUDRAWOHREL NIAM M ERIE EUCLID PARK NEWELL ALAMO EVILO GCMRAAARYSSOSOONNN POPLAR POPLAR J O ARDBLEEORLAURGLI ZAPLDAOCE COLORADO SRAN MARCOSIVAS 10 WARMREANRSEHUALCLELILDMIRA QUICNACMYDDEAANLULGASU3ST5A NESOldB rLeowneer ySt1a0THr SDHUEVRAMLAN SMMAOLAPINERRRATAEINSLZES CAMARON NAVAURrRsOulineAudCiitrocrlieum 5TH6THBROO8KTLHYN9TH BULHRALAMEYSASORN WOLLIW YECNUM NA A DA MARTIN 4TH BURNET LAS MORAS BCUEONMAM VEISRTCAEMONTEREY MCEDIaSqttlueamrean 35 SANTA ROS MainPSEROLF/laMzialiDELOStary ST MARY'SPEHCOAUNSTOTNRAVIASlaAMOmo3 CRPDRlOaCzaKETT MLE HMKAO EVILeuarplyhTUNTSEHC-y HDNOAOUWLSASTOONNN AL CROCKETT The Alamo GSUACAENODLD 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HHAIKDAGRAMRVIHGYEAMLTXSANOOBENTYLNNDD FMHiigasuptor oerif c1 D -D3oi ws tnritcotwsn BAILEY MCKAY 0 0.25 0.5 Miles *Beyond these areas access to retail requires bicycle and transit or automobile travel. San antonio Downtown tranSportation StuDy | Section one | page 6 Source: San Antonio Strategic Framework Plan SAN ANTONIO DOWNTOWN TRANSPORTATION STUDY geTTing arOunD in DOwnTOwn san anTOniO TODay san anTOniO’s hisTOric arMaTure— a brief hisTOry Of The DOwnTOwn sTreeT paTTern Traveling along many Downtown San Antonio streets, even the casual traveler may observe that streets vary widely in width and “meander.” Instead of one standard grid layout, streets in Downtown San Antonio follow numerous orienta- tions. The Downtown Transportation Study team observed early on that San Antonio streets are notable for their exceptions to standard street widths and configurations. Downtown rights-of-way vary widely, from less than 30 feet (Crockett Street) to over 100 feet (César Chávez Blvd.), with considerable internal variation as streets traverse blocks. This extreme variability poses a challenge for contextual planning and updating Downtown streets to meet the demands of multi-modal transportation. San Antonio streets came into existence as historical explora- tion, settlement and trade routes, as is the case with other western US cities. The first of these, El Camino Real (aka the El Camino Real de los Tejas, or the Old San Antonio Road), was not actually a single road but a network of trails followed by Spanish explorers and missionaries. Other early routes of exploration, settlement, trade and commerce included the Upper Presidio Road, the Lower Presidio Road, the Pita Trail, the Pinta Trail, the Camino de la Bahia, and the various routes of the Laredo Road. By 1889, within the 36-mile city bound- ary the downtown streets had filled out, essentially matching their configuration today with a few missing exceptions, including Durango/César Chávez Blvd. Figure 1-4 Map of San Antonio Figure 1-3 c. 1889 Map of Downtown Source: https://www.tsl.state.tx.us/ Historic Districts arc/maps/images/map0124.jpg San antonio Downtown tranSportation StuDy | Section one | page 7 SAN ANTONIO DOWNTOWN DOWNTOWN TRANSPORTATION STUDY Fig. 1.5-1A Map of Acequia System san anTOniO’s hisTOric arMaTure—a brief hisTOry Of The DOwnTOwn sTreeT paTTern continued The 1889 map clearly shows a street hierarchy in place during the late 19th century, consisting of various classes of streets, each of which had predetermined widths, functions and materials. At the top of the hierarchy are major connectors that connect the center city with regional towns. These include rail/ street corridors such as Fredericksburg/Flores, Alamo/Avenue C (now Broadway) and San Pedro/Main Avenue. A few streets follow creeks or acequias (Spanish irrigation ditches) including Labor Street, North Flores and Garden (now South St. Mary’s). The San Antonio River and San Pedro Creek are defining boundaries for Downtown and the neighborhood street grids which complete the system. Neighborhood grids are fairly symmetrical west of San Pedro Creek and east of the main rail line (Galveston, Harrisburg & San Antonio Rail). North and south of Downtown, through the present-day neighborhoods of River North and King William, the grids tilt diagonally in response to the general direction of the River and the original suertes/solars that were oriented to the river. Though very little is left of the old acequia system, the acequias, creeks and especially the River were major shapers of the street anomalies experienced today. Figure 1-5 shows a map of the original acequia system. Figure 1-5 Map of Acequia System The Colonial-era acequia system, creeks, and the San Antonio River influenced the street anomalies experienced today. ³ 0 2,250 4,500 Acequias FEET San antonio Downtown tranSportation StuDy | Section one | page 8