Peace_Street_Visioning_Study

PEACE STREET CORRIDOR
NORTH PERSON STREET TO GLENWOOD AVENUE | RALEIGH, NC
VISIONING STUDY
URBAN PLANNING AND DESIGN
MARCH 2011
PEACE STREET VISIONING STUDY
RALEIGH, NC
URBAN PLANNING AND DESIGN
MARCH 2011
ACKNOWLEDGEMENTS
DEPARTMENT OF CITY PLANNING
URBAN DESIGN CENTER
OFFICE OF TRANSPORTATION PLANNING
GREENE TRANSPORTATION SOLUTIONS, PC
Mary Ann Baldwin, RALEIGH CITY COUNCIL
URBAN PLANNING & DESIGN
Lawrence R. Zucchino, ALSA
David E. Brown, ASLA
JDAVISARCHITECTS, PLLC • RALEIGH | PHILADELPHIA
URBAN PLANNING AND DESIGN
INTRODUCTION AND BACKGROUND
This design/planning effort was initiated by JDavisArchitects to support the efforts of
the Department of City Planning by providing pro bono consultation to conceptualize the
second phase of the Peace Street corridor revitalization project. The study’s intent was to
serve as a broad planning exercise to identify, envision, and propose potential improve-
ments that would enhance the corridor’s capacity to operate at the highest level of urban
form and function. Consideration has been given to both private and public realms within
the Corridor, with a focus on public improvements in support of private redevelopment.
This report serves as a summary of recommendations and ideas from the planning consul-
tant with informal input from City of Raleigh staff and others.
If fully realized, these strategic improvements could better position the Peace Street Cor-
ridor as a vital asset for Downtown Raleigh, anchoring Downtown’s northern perimeter,
and serving as a Gateway linking Downtown Raleigh and Capital Boulevard. With the
City currently engaged in a Visioning Plan for the Capital Boulevard Corridor as a future
mixed-use district, the timing of focused planning and visioning for Peace Street becomes
more relevant. The Visioning Study recommendations and ideas will clearly need more
detailed study by the City and stakeholder input to evaluate their viability. The Visioning
Study recognizes and embraces the future need and value of full public input and involve-
ment in advancing ideas for improving this strategic area of the City of Raleigh.
Peace Street has long served as a key east-west transportation corridor at the northern
end of downtown linking Peace College, Seaboard Station, the State Government Center,
and the Oakwood, Mordecai and Oakdale neighborhoods with the Central Raleigh retail
and service centers of Glenwood Avenue and Cameron Village (figure 1).This corridor has
also served as the primary gateway portal for access to the State Government Center and
Glenwood South/Cameron Village from inbound Capital Boulevard, Wade Avenue, and
Glenwood Avenue. However, in its current state, Peace Street is not functioning at a
high level for its users and forms a physical barrier between downtown and the northern
districts. As a case in point, the next geographic through traffic corridors are Edenton/
Hillsborough Streets ten blocks to the north, and Atlantic Avenue two miles to the south
and one section of Peace Street lacks pedestrian access into downtown for a distance of
2,000 feet or approximately five blocks.
The corridor has served its functions quite well beginning with the construction of Capital
Boulevard, formerly named Downtown Boulevard, fifty years ago. In the intervening
years, as Downtown Raleigh has grown, matured and redeveloped, this one-half mile
stretch of Peace Street remains remarkably static with little growth or change other than
an increase in traffic intensity. The corridor is performing a yeoman’s job moving traffic
with surprising efficiency, but as anyone who uses this corridor regularly recognizes, it has
reached or exceeded its functional capacity as an efficient traffic corridor.
Peace Street had historically served as a pedestrian route for workers employed at
industrial and rail enterprises on the northern edge of Downtown. Over time the pedes-
trian activity diminished until the mid-1970’s with the expansion of the State Government
Center complex and as the City established the Municipal Service Center Complex on
the site of the former Devereaux Meadows baseball stadium in the early 1970’s. Recent
new development in Glenwood South, Capitol Park, Seaboard Center and Blount Street
Commons have collectively led to an increase in pedestrian and biking activity along the
corridor. With the addition of the R-Line and expected further redevelopment, use of the
corridor by pedestrians and bicyclists is expected to increase dramatically. At this time,
pedestrians and cyclists are pioneering this urban landscape, braving the corridor which
has seen few pedestrian/bicycling improvements over the past fifty years.

PEACE STREET CORRIDOR • VISIONING STUDY MARCH 2011 | RALEIGH, NCpage 3
FIGURE 1
PEACE STREET CORRIDOR: FIGURE 1
STUDY AREA
PEACE STREET CORRIDOR • VISIONING STUDY
RALEIGH, NC URBAN PLANNING AND DESIGN
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URBAN PLANNING AND DESIGN
KEY RECOMMENDATIONS OF THE VISIONING STUDY (FIGURE 3)
KEY RECOMMENDATIONS:
• Guide the design of the planned Capital Boulevard Bridge replacement
in a manner that both improves traffic flow and enhances and promotes safe
pedestrian and cycling traffic along the Peace Street Corridor.
• Establish an integrated Pedestrian/Bike Facility along Peace Street from
North Person Street to Glenwood Avenue.
• Encourage Triangle Transit to locate a Downtown Transit Station on, or
in close proximity to, the CSX Rail Bridge over Peace Street.
• Explore the potential for a mid-block Urban Greenway with direct access
from Peace Street, extending from the CSX Bridge at Seaboard south into
Downtown at Harrington Street.
• Explore the potential for a Pedestrian/Bike Corridor along North West
Street from Peace Street south to the future Raleigh Union Station and on to
the Dix property.
• Explore roadway improvements at the Wilmington/Halifax/Peace
intersection, including the prospect of a roundabout and new civic space.
• Extend North Harrington Street one block north to intersect with
Peace Street.
• Encourage redevelopment of underutilized properties along the
Corridor with mixed use buildings with ground floor retail and service uses.
• Undertake near-term safety and functional improvements along the
Peace Street corridor in support of vehicular, pedestrian and bicyclist use.
PEACE STREET CORRIDOR • VISIONING STUDY MARCH 2011 | RALEIGH, NCpage 5
FIGURE 2
PEACE STREET CORRIDOR: FIGURE 3
KEY RECOMMENDATIONS
PEACE STREET CORRIDOR • VISIONING STUDY MARCH 2011
RALEIGH, NC URBAN PLANNING AND DESIGN
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FIGURE 3
URBAN PLANNING AND DESIGN
• The Visioning Plan suggests the implementation of a modified roundabout,
affectionately termed the “Dog Bone” roundabout. If implemented, a round-
about would provide a continuous flow of traffic through this section of the corridor
while establishing bike lanes and improved sidewalk facilities in keeping with the
Pedestrian/Bike Corridor Concept. If a more conventional diamond or ramp solution
is ultimately designed for the interchange, the City should ensure that the design is
supportive and not restrictive of the Pedestrian/Bike Corridor Concept. Initial
evaluation of traffic flow suggests that a roundabout might be feasible at this location.
• An alternative geometry for a new bridge and interchange envisions the
use of access and departure ramps located south of the Peace Street/Capital
Boulevard interchange. This approach would use add a deceleration lane and
ramp using the existing W. Johnson Street as the receiving street with direct access
to Peace Street via an extending N. Harrington Street. A new access ramp from
Peace Street would be aligned east of Capital Boulevard and would provide access
through the W. Johnson Street right-of-way. Of the current ramps in place, only the
north bound access ramp off Peace Street would remain.
• In the interim, we recommend that City and State transportation engineers
explore the prospect of the closing the northbound exit ramp and the south-
bound entrance ramp as a means to reduce traffic turn movements, relieving
some congestion at this busy interface between Capital Boulevard and Peace Street.
The ramp closings would also greatly improve safety and convenience for pedestrians
and cyclists along the northern edge of Peace Street.

Capital Boulevard/Peace Street Interchange
The Capital Boulevard interchange in its current geometry is by all accounts at or exceeds its functional capacity given the traffic volumes it cur-
rently supports. With the prospect of a future bridge replacement by NCDOT, there will be a unique opportunity to provide creative input for an
interchange configuration that is more supportive of the City’s vision for the Peace Street Corridor. Any proposed interchange redesign should
minimize the footprint of the public right-of-way to allow for maximum redevelopment opportunities. (FIGURE 4)
STREET AND TRANSIT IMPROVEMENTS
PEACE STREET CORRIDOR • VISIONING STUDY MARCH 2011 | RALEIGH, NCpage 7
URBAN PLANNING AND DESIGN
FIGURE 4
CAPITAL BOULEVARD INTERCHANGE PROPOSALS
PEACE STREET CORRIDOR • VISIONING STUDY MARCH 2011
RALEIGH, NC
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ROUNDABOUT OPTION JOHNSON STREET OPTION
URBAN PLANNING AND DESIGN
S. Wilmington Street /Halifax Street Intersection
• The Wilmington/Halifax/Peace Street intersection represents a second
opportunity to improve traffic flow and reduce congestion. A two-lane
roundabout is recommended for feasibility analysis by the City transportation
engineers. This intersection continues to be a bottleneck which may be improved
with more conventional traffic engineering solutions. However, there is some
prospect that a two lane extended roundabout might provide free-flowing traffic
while establishing a signature open space at this important gateway into the state
government center and downtown. The roundabout would extend south in to the
Wilmington Salisbury loop, with the roadway geometry offset to the south.
North Harrington Street Extension
• North Harrington Street lacks beneficial north-south traffic connectivity as
it is currently aligned. The extension of North Harrington Street one block north to
Peace Street would improve vehicular and pedestrian access to Peace Street. The
block of land in the proposed alignment is privately held with operating businesses.
However, the benefits of increased urban connectivity, and the prospect of future re-
development on the affected properties would be greatly enhanced through increased
street frontage, the creation of high-value corner properties, and improved property
configurations for redevelopment.
S. Wilmington Street to N. Person Street Road Diet
• The Study recommends that the City explore the prospect of applying a road
diet to this section of Peace Street. There is limited right–of-way available and
the current three land configuration limits the accommodation of bike lanes and im-
proved pedestrian facilities. Traffic volume and turn movements in this section of the
corridor are lower than in other sections. The establishment of a three-lane street sec-
tion with a center turn lane, bike lanes, and periodic median refuges, if implemented,
would greatly improve the functionality of the street.
Triangle Transit Station
• We recommend that the future Triangle Transit State Government Center
Station and platform (or an additional downtown station) be planned for the
CSX bridge over Peace Street. A downtown transit station could be effectively
incorporated into this design, adding additional impetus for a north-south Urban
Greenway serving the State Government Center and Seaboard Complex employees
and users. The concentration of SGC parking decks immediately south of the station
present an opportunity for a shared use program with State Government employees
and Triangle Transit Park and Ride users. That integration will likely spur additional
pedestrian and biking activity. This represents a strong opportunity for the Peace
Street Corridor to serve as a district transit nexus linking Downtown/Glenwood South
and the State Government Center/Seaboard District.
STREET AND TRANSIT IMPROVEMENTS (cont’d)
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URBAN PLANNING AND DESIGN
PEDESTRIAN AND BIKEWAY IMPROVEMENTS
In addition to access, capacity and safety limitations, the corridor presents a chaotic pedes-
trian and biking experience offering few urban design amenities and is lacking in attractive
urban character. This condition is particularly acute west of Capital Boulevard, where the
pavement is extremely wide and the street edges are very poorly defined. In general, without
public investment, the corridor will lack the necessary conditions to attract mixed-use rede-
velopment supportive of a healthy urban corridor. All of these conditions diminish the cor-
ridor’s ability to serve as a vibrant and capable streetscape in this important part of the city.
Pedestrian and bicycle facilities along Peace Street currently function in a very diminished
capacity with marginal levels of pedestrian/bicyclist safety and access. Pedestrian access
from Peace Street into Downtown is not available for a 2,000 foot stretch, or five blocks,
between Wilmington Street and West Street.
The corridor has fixed right-of-way dimensions limiting the full realization of a “complete
streets” approach. Implementation of pedestrian and bike lane improvements may require
the acquisition or dedication of additional rights-of-way from property owners, particularly
along the southern edge of this corridor.
The pedestrian and bike facilities could be implemented in advance of the redesign of the
Capital Boulevard Bridge replacement if the design were closely coordinated with the early
conceptual stages of the bridge replacement and with any associated reconfiguration and
realignment of Peace Street. If not, only interim improvements should be planned and
implemented prior to the Capital Boulevard bridge replacement.
The opportunity for local and regional pedestrian/bike interconnectivity within the NC3
corridor, alone or coupled with the CSX Corridor, West Street Corridor, potential Triangle
Transit station, and the Peace Street pedestrian facility would create a pedestrian/bike
transportation network which has the potential to transform the so-called northern frontier
of Downtown.
Peace Street Pedestrian/Bike Facility
• Our recommended approach to providing safe and efficient bicycle and
pedestrian through movements would be a consolidated pedestrian/bike
facility concentrated on the south side of Peace Street. (FIGURE 5)
Given the obstructions and safety issues present with the north side of Capital Boule-
vard access ramps, the south side of Peace Street would be more accommodating for
such a facility. A dedicated two-way bike lane above the curb line and a dedicated
pedestrian walkway along the corridor edge would be provided from Wilmington
Street to West Street. A five lane road section would be maintained but with reduced
lane widths and additional right-of-way would be needed along the southern roadway
corridor to accommodate the consolidated bikeway/pedestrian facility. More con-
ventional sidewalk improvements on the north side would be made to improve safety
for more limited through movements. A more conventional alternative would be to
establish bike lanes on both sides of the roadway section. An amenitized pedestrian
walkway would complement bike lanes along both sides of the street. This approach
might be the preferred alternative, particularly if the “square box” Capital Boulevard
interchange alternative is implemented.
PEACE STREET CORRIDOR • VISIONING STUDY MARCH 2011 | RALEIGH, NCpage 10
PEACE STREET CORRIDOR: FIGURE 5
PEDESTRIAN BIKE FACILITY
PEACE STREET CORRIDOR • VISIONING STUDY MARCH 2011
RALEIGH, NC URBAN PLANNING AND DESIGN
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FIGURE 5
URBAN PLANNING AND DESIGN
Peace Street to N. Harrington Street Urban Greenway
• An Urban Greenway supporting a pedestrian way and bike path along the
eastern edge of the CSX Corridor could be established from Seaboard Drive
to an at-grade connection at Harrington Street and North Street. There are
currently very limited north-south pedestrian /bike linkages from Peace Street into
Downtown, a condition which severely inhibits the integration of Peace Street corridor
with Downtown. The CSX corridor and the adjacent SGC property provide a logical
opportunity to create a strong north-south Urban Greenway outside of the conventional
street grid. Pedestrians and cyclists would access the facility from the east side of
the CSX Bridge using Railroad Street, a new at-grade ramp along the north bridge
abutment, or Seaboard Avenue. A decorative fence and landscape buffer would ef-
fectively amenitize and physically separate the urban pathway from the rail operations.
A dedicated pedestrian bridge over Capital Boulevard at the CSX Bridge would be
needed for the link to be implemented. A spur would connect the pathway to the SGC
with a new pedestrian link to Salisbury Street between the SGC parking decks.
West Street Pedestrian/Bikeway Link
• North West Street should be evaluated for dedicated bike lanes and
upgraded pedestrian facilities from W. Peace Street to W. Hargett Street.
North West Street offers a second strong opportunity to improve north-south pedestri-
an/bike access and connectivity from the Peace Street Corridor into Downtown. Direct
access from Hargett Street to Union Station and beyond to the Dix property should be
addressed at the appropriate time.
• A future pedestrian/bike facility connection north, along the Capital Boule-
vard corridor, should be planned to connect directly to the West Street inter-
section at Peace Street. This connection would link with the City Services tract and
any future Greenway/Pedestrian corridor north along Pigeon Branch, ultimately serving
as a local and commuter pedestrian/biking corridor extending from the Dix property to
the Crabtree Creek Greenway.
• It is of interest to note that the SEHSR (Southeast High Speed Rail)
Alternate NC3 may present a significant opportunity to establish a much
needed regional north-south pedestrian/bikeway linkage. This alternative
proposes an elevated High Speed Rail adjacent to and east of the existing Norfolk
Southern rail line. If the NC3 alignment or similar alternative ultimately proves to be
the favored SEHSR route, the Vision Study recommends that the eastern edge of the
existing rail corridor be expanded and dedicated for the construction of a north-south
pedestrian/bike facility. As envisioned, the pedestrian/bike facility would be a dedi-
cated grade-separated route from Crabtree Creek Greenway south to Peace Street and
ultimately connecting to Union Station via the West Street Pedestrian/Bikeway link.
PEDESTRIAN AND BIKEWAY IMPROVEMENTS (cont’d)
PEACE STREET CORRIDOR • VISIONING STUDY MARCH 2011 | RALEIGH, NCpage 12
URBAN PLANNING AND DESIGN
REDEVELOPMENT OPPORTUNITIES
There has been little recent property redevelopment along the Peace Street Corridor between Wilmington Street and Glenwood Avenue.
An improved roadway with a new Capital Boulevard bridge and interchange, along with improved pedestrian access, may provide the impetus for
increased redevelopment along the corridor. Redevelopment prospects for private property will vary for different sections of the corridor in con-
junction with public capital improvements. The ideas presented in this Study represent depictions of possible uses on privately held properties.
The study is intended for visioning purposes only and fully recognizes that any future development decisions for private property would be made
solely by the property owners. We would expect a mix of mid-story office, residential and institutional uses and some ground floor retail opportuni-
ties to emerge along Peace Street, particularly west of the Capital Boulevard Interchange, and on a realigned North Harrington Street. (FIGURE 6)
• The State Government Center property from North Wilmington Street to
the CSX Bridge presents an opportunity for public/private redevelopment.
Whether the frontage is redeveloped by the State or by a private public partnership,
street level uses, either office or retail, along this section would be viable.
• The north side frontage from North Wilmington Street to the CSX Bridge
would likely have an institutional use by Peace College and the remainder
has potential for a mix of office and retail uses.
• The corridor frontage west of Capital Boulevard would have the greatest re-
development potential for mixed use buildings, including ground floor retail,
on both frontages if on street parking could be provided. In support of ground
floor retail, the City might consider adding a “slip lane” with parking along the both
sides of Peace Street in this location.
• The City Services Center property presents a special opportunity for a more
comprehensive mixed use development. Special attention to the land use and
roadway interface with Peace Street will be extremely important.
• The extension of North Harrington Street to intersect with Peace Street
would provide greatly improved street and pedestrian connectivity and
would provide more desirable residual redevelopment parcels with greater
visibility, access and street frontage. A mix of residential, office, retail and park-
ing is envisioned.
• The Blount Street Commons frontage may not be completed with mixed-use
buildings with ground level retail as originally envisioned. However, the City
should ensure that a wide pedestrian corridor in accordance with the Downtown
Overlay District be with redevelopment reserved from North Wilmington Street to
North Person Street. Plans for Blount Street Commons and the new AIA Headquarters
property should be evaluated for opportunities to establish a fourteen foot sidewalk in
accordance with the Downtown Overlay District standards.
PEACE STREET CORRIDOR • VISIONING STUDY MARCH 2011 | RALEIGH, NCpage 13
PEACE STREET CORRIDOR: FIGURE 6
REDEVELOPMENT OPPORTUNITIES
PEACE STREET CORRIDOR • VISIONING STUDY MARCH 2011
RALEIGH, NC URBAN PLANNING AND DESIGN
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FIGURE 6
URBAN PLANNING AND DESIGN
1. Capital Boulevard and CSX Bridges:
a. Develop a lighting plan to facilitate pedestrian access and an improved sense of
safety under the Capital Boulevard and CSX Railroad bridges.
b. Install bird netting and other deterrents to prevent roosting by pigeons in the
undercarriage of the Capital Boulevard and CSX Railroad bridges.
c. Maintain adjacent landscaping and rip-rap clear of pedestrian walkways.
2. Crosswalks: Install bold-patterned crosswalks and upgrade all pedestrian-
related signal amenities at the following locations
a. Peace and Halifax Streets, north and east sides of the intersection.
b. Peace and North Wilmington Streets, all four sides of the intersection,
c. Peace and North Blount Streets, all four sides of the intersection
d. Peace and North Person Streets, all three sides of the intersection.
e. Peace at northbound ramp to Capital Boulevard; this will involve revising several
ramps H/C Ramp upgrades and connections over both the on and off ramps for
Capital Boulevards.
3. Sight Distance:
a. Relocate traffic signal control box located in the landscape island at Peace and
West Streets.
b. Relocate utility pole at SE quadrant of Peace and West Streets.
4. Drive Cuts: Reconfigure access in front of retail establishments immediately
west of the Capital Boulevard bridge to eliminate the undefined driveways
and provide a distinct pedestrian facility.
5. Pedestrian Facilities:
a. Repair Sidewalk throughout Corridor
b. Evaluate Handicap Access
c. Evaluate opportunities for implementing DOD Sidewalk Zone, particularly from
Person Street to Wilmington Street.
d. Establish an expanded DOD Sidewalk on Peace Street fronting the new AIA
Building site.
6. Traffic/Transit:
a. Establish a left turn function from center turn lane into SGC parking lot across
from Shell Station or consider alternative access points for surface parking lot.
b. Consider adding an R-Line route through Seaboard District
c. Provide Bus Shelters along the corridor
d. Evaluate bus stop locations with respect to keeping traffic moving through the
corridor – current R-Line stop impedes flow at intersection of Wilmington and
Peace.
7. Capital Boulevard Interchange:
a. Prune evergreen trees to increase perception of safety.
b. At bottom of south-bound exit ramp, change traffic control signage from “Yield”
to “Stop”.
8. Street Trees: Designate and install a preferred street tree for the corridor.
IMMEDIATE IMPROVEMENT RECOMMENDATIONS (FIGURE 7)
PEACE STREET CORRIDOR • VISIONING STUDY MARCH 2011 | RALEIGH, NCpage 15
PEACE STREET CORRIDOR: FIGURE 7
NEAR TERM IMPROVEMENTS
PEACE STREET CORRIDOR • VISIONING STUDY MARCH 2011
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FIGURE 7