Rethinking Freeways and Expanding Participation

The Wisconsin Department of Transportation (WisDOT), has began developing scenarios for rethinking I-794 highway infrastructure. The I-794 area of study begins at the Milwaukee River and ends around the Hoan Bridge. The reason being the highway is significantly deteriorating and in need of improvements. WisDOT has begun the first phase of rethinking alternatives beginning with receiving public feedback. WisDOT's first steps in this process is seeking to understand how the infrastructure is currently being utilized and how those in the area interact with it. From public engagement meetings and comment analysis WisDOT has published a summary report of public feedback and will use this report’s findings to develop their next designs. Public feedback is not the sole consideration in creating their next design but it is an important component in the study process.

WisDOT undertakes a form of direct participation that may be considered conventional participation yet operates using a multifaceted approach to receive public feedback (Nabatchi & Leighninger 2015). The meeting was hosted in an open house style where participants could wander and view the three alternative scenarios for I-794 that were presented on printed posters, large maps and projected. Participants could provide written notes on a comment form or could scan a QR-code and share their thoughts from their devices. Interactive boards were also available for placing comments, and project staff were available to hold fruitful discussions with the community.

To study this case, I analyzed a written report summary of public comments from two in person meetings along with comments received during a comment period. WisDOT hosted two public meetings in early August at two different locations. Over 800 participants attended these meetings and received 1,781 comment forms from the in-person meetings and online based forms. More than half of the respondents came from zip codes closest to the I-794 study area. The summary feedback is comprehensive and has been quantified responses of existing conditions, opportunities for improvement, and feedback from the design concepts. 

When asked what components of the existing infrastructure work well, the top response (886) is that it provides access to the regional system. As for opportunities for improvement, the top response (994) is to decrease freeway footprint and improve local streets by providing more pedestrian and bicycle infrastructure (WisDOT Public Meeting Summary). As for overall concept design, there is no clear majority. Results with opinions from both sides have been summarized yet does not present a which design scenario was favored amongst the public. 

Although the methodology utilized by WisDOT to analyze these comments is unknown, they have used a latent analysis approach. The latent analysis approach groups responses into categories such as those who support removal or improvement (Gaber, 2019). Yet the results fail to reveal which design scenario was most popular among respondents.

In contrast to the official analysis produced by WisDOT, private entities like Re-Think 794 developed their own concept renderings envisioning a freeway-free scenario. Re-Think 794 mentions the improvement of quality of life and economic development possible without the freeway (Removing Freeways and Healing Communities).  Although there is clear support for freeway removal, these results are not clearly represented in the summary findings.

The reason WisDOT is conducting this study is to accommodate the aging infrastructure. The freeway was completed in 1975 and is need of improvements in terms of connectivity, traffic safety, and system linkages. I-794 serves as a significant connection for travel with an estimated 26,600 vehicles traveling through the freeway, WisDOT reports that traffic levels are average and does not require expansion. 

WisDOT has also analyzed peak travel times and the most common travel use is for outbound trips with over 70 of users in the mornings and evenings begin their trip using the freeway and travel to the Wisconsin (Marquette) interchange. The multiple uses around the freeway have also been studied, to understand the interaction between other types of traffic and the freeway. The results show high volumes of pedestrian and bicycle traffic, with 1 out of every 5 residents walking to work (ACS 2016 – 2020 5 year estimates). The surrounding streets of Broadway and St. Paul Avenue were extremely busy with pedestrian and bicycle traffic. Reporting in May of 2022, 4,000 pedestrian and bicyclists crossed the intersection in a 13-hour window. Crashes exceed the state average for roadways of similar design with 95.77 crashes per 100 million miles traveled. Along the existing at grade street network 56 crashes occurred and one was fatal (WisDOT Explore Mobility).  

WisDOT prepared four alternative scenarios, the first is “No Build” where the infrastructure is left to deteriorate, and no replacement happens. The second is called “Replace in Kind”, which involves reconstructing existing infrastructure, maintaining all access points, and some local street improvements. The third is “Freeway Improvement” which involves reconstructing the freeway with no expansion, improving design features, consolidating ramps, improving street connections, and providing complete street accommodations. The final option is “Freeway Removal” which would utilize the at-grade street network (WisDOT About). 

An interesting note is that this would not be Milwaukee’s first time removing a freeway, in 2003 the Park East Freeway was decommissioned. The Park East Freeway ran along Milwaukee's downtown and northside and was opened in 1971, only a couple miles north of I-794. Park East was severely underutilized and operating way below expected capacity, and in 2003 it was officially demolished (Removing Freeways and Healing Communities). Yet for Milwaukee has been a case study for success with high development occurring around the area.

This case utilizes a common method of public engagement, public meetings when properly executed can be useful in exchanging information between the community and planning organization (APA, 2006 p.43). Although public engagement has been well employed through the I-794 study process, there is room for improvement. Comments can be made available online, and a key issue with the report summary is not displaying a clear majority of the design scenarios. Although there is much support for freeway removal with private firms such as Re-Think 794 and many expressing their support for more pedestrian and bicycle infrastructure it is hard to justify this support from these comments. Transparency is important when facilitating public engagement and should be maintained throughout all levels of the study’s process. 

Analyzing the level of engagement based upon research from Lach and Hixson (1998), state that participants value acceptability, accessibility, time commitments, and trust (APA, 2006 p. 33). Although WisDOT has produced a comprehensive review of public comments, for increased transparency comment results can also be published. WisDOT is currently in the beginning stages of development and has place large emphasis on public engagement, and as this project progresses it will be interesting to see how feedback from the public is utilized.

References

American, Planning Association, et al. (2006) Planning and Urban Design Standards, John Wiley & Sons, Incorporated. ProQuest Ebook Central,  https://ebookcentral.proquest.com/lib/utsa/detail.action?docID=1031840 .

Gaber, J. G., Sharon. (2019). Qualitative Analysis for Planning & Policy: Beyond the Numbers. Routledge.  https://doi.org/10.4324/9781351179614 

Lach, D, Hixson, P, Silbernagel, M, Branch, K, Heerwagen, J, & Bradbury, J. (1998). Developing prototype indicators of value and costs added through public involvement programs. United States. https://doi.org/10.2172/10116188 

Removing Freeways and Healing Communities. (n.d.). American Planning Association. Retrieved November 14, 2023, from https://www.planning.org//blog/9262111/removing-freeways-and-healing-communities/

Wisconsin Department of Transportation – 794 Interchange, About the Study.  https://www.794lakeinterchange.wisconsindot.gov/about#StudySchedule 

 Wisconsin Department of Transportation – 794   Interchang e, Explore Mobility. https://www.794lakeinterchange.wisconsindot.gov/about#ExploreMobility

   Wisconsin Department of Transportation – 794 Interchang e, Public Meeting Summary. https://assets-global.website-files.com/647f3615434dca744e168f93/65490a52245595f38cbd21c2_23-1106_794-factsheet_PIM1_PI-summary.pdf