Belmont Bridge

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The Belmont Bridge carries Avon Street over the CSX railway to the east of Charlottesville's Downtown Mall. It is a primary pedestrian connection to the Belmont Carlton neighborhood. Completed in 2024, the replacement bridge is the third structure to cross the railroad tracks and had been in the planning process for many years.[1]

The City of Charlottesville marked the completion of the newest Belmont Bridge, with a ribbon cutting ceremony on Friday, June 28, 2024 at 11 am. Mayor Juandiego Wade, City Manager Sam Sanders and Public Works Director Steven Hicks attended this event for the community.

The replacement is the third structure to cross the railroad tracks and had been in the planning process for many years. The now-demolished bridge had opened in 1962. [2] Construction was slated to begin in Spring 2020 with completion slated for 2022, but that was pushed back due to a cost over-run after the project was put out to bid. [3]

The city spent many years planning for the replacement and construction got underway in the summer of 2021. A notice to proceed for construction was given in late June 2021. [4] The eastern portion of the bridge has been completed and now the western portion is under construction.

The replacement will be the third structure to cross the railroad tracks and had been in the planning process for many years. The now-demolished bridge had opened in 1962. [5] Construction was slated to begin in Spring 2020 with completion slated for 2022, but that was pushed back due to a cost over-run after the project was put out to bid. [6]



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Belmont Bridge Replacement
Belmont-bridge.jpg

Planned

Project Overview

To replace a bridge that has a sufficiency rating of 47.6 [7]
Cost $31.1 million [8]
Location City Hall
Sponsor Charlottesville

Status Update

Kimley-Horn is developing construction documents for the project

Website Official site
Contact Jeanette Janiczek, VDOT program manager, Charlottesville

Project overview

Charlottesville spent several years studying the best approach to replace the Belmont Bridge, which carries Avon Street over the Buckingham Branch railroad line.[9] As of Jan 2018, the firm Kimley-Horn is developing construction documents for a new bridge that will be shorter than the existing bridge.[10]

Approved major design features as of an October 2018 Status Report[11]:

  • A replacement bridge that is shortened to approximately 236 LF in length and maintains the existing 62’ width
  • Roadway Section on Avon/9th Street between Levy Avenue and East Market Street intersections will consist of one travel lane in each direction, a protected 7’ wide bike lane in each direction and a 10’ wide pedestrian sidewalk in each direction. Turning lanes will be added/lengthened at each intersection to maximize efficiency of each signal while maintaining traffic flow.
  • “Old” Avon Street will be closed to vehicular traffic between Levy Avenue and East South Street to improve the function and safety of the Levy Avenue/9th Street intersection for all modes of travel while creating a pedestrian plaza within the former roadway.
  • Enhanced pedestrian lighting and landscaping will be provided along 9th Street between Levy Avenue and East Market Street.
  • New sidewalk will be constructed along neighboring streets to the project corridor and landscaping will be installed – on East South Street, Avon Street, Graves Street and Water Street.

History

Charlottesville C&O Depot and bridge crossing, ca. 1905
1910-C&O Station and Bridge Crossing.JPG

Prior to 1905, there were gates at an at-grade crossing with the railroad that controlled pedestrian and horse access to the tracks.[12] One of the guardians of these gates was a man named Ned Harrison, who went by Uncle Ned.

Belmont Bridge (Apple Harvest Festival parade), 1951

The first bridge to span the railroad tracks was built in 1905 and helped trigger rapid growth in the Belmont-Carlton neighborhood.[13] This bridge was replaced in 1962.

Replacement chosen over repair

On September 15, 2003, Council discussed a request to VDOT for $1.6 million in emergency funding to repair the bridge. At the time, Maurice Cox noted the bridge was not friendly to pedestrians and suggested the "best solution" was not a replacement. Jim Tolbert responded that the future of the bridge could be determined after VDOT approved the project. [14] They next discussed the project at a work session on September 27, 2004 and were told a "band-aid repair" would cost $180,000 whereas $1.6 million would fix the issues. [15]

At the April 18, 2005 meeting, Council was briefed on the city's participation in the Virginia First Cities program meaning the city would now manage allocations of VDOT funding. At the time, the idea was to repair the bridge. [16] A public hearing on $1.46 million in federal funds was held on May 2, 2005. Another $552,000 in state funds were earmarked for the project. [17]

However four years later, the bridge had deteriorated to the point where replacement was recommended over repair. The repairs project never went forward, and Council was asked to proceed with a plan to replace at their meeting on April 6, 2009. [18] In December 2008, a cost/benefit analysis conducted by the city had supported full replacement rather than repair. [19]MMM Design was selected to serve as the design consultant for the project. [20]

Initial struggles with funding

In November 2009, VDOT officials announced plans to cut several hundred million dollars worth of projects to fill a budget deficit, threatening the ability for the city to save for the bridge in time for replacement. [21]

The city received $1 million in VDOT revenue sharing money for the project to be split across FY2012 and FY2023. This required a local match of $1 million. [22] Charlottesville Mayor Dave Norris expressed concern the city would have to contribute funding to a project he said was the state's responsibility. [23]

Some of the funds set aside for the project were used to pay for cost overruns for Jefferson Park Avenue Extended Bridge Replacement. [24]

In May 2011, the Charlottesville-Albemarle Metropolitan Planning Organization was told that the estimate for the bridge replacement had climbed to $14.5 million. [25] [26]

Rocky road for the MMM Design

MMM Design held a public kick-off meeting in November 2010.[27] They held a series of meetings with different stakeholders including the Downtown Business Association of Charlottesville, bike and pedestrian groups, neighborhoods, and the Chamber of Commerce. The city's Jeanette Janiczek presented to City Council on June 20, 2011. [28]

However, after a series of public meetings they presented a design that did not meet the favor of many in the Belmont community. In September, four residents told the Board of Architectural Review that they felt the process was flawed. They included Greg Jackson, Brian Wimer, Galen Staengl, and Jordan Phemister. [29]

Creative protest

In late November 2011, Filmmaker Brian Wimer issued a press release announcing Project Gait-Way, an effort attempt to subvert the city's process.

"Call it creative protest," the news release states. "Community members felt it necessary to step up, where dialog with the MMM design team seems to have deteriorated – much like the bridge itself. Built in 1960, the Belmont bridge is allegedly near the end of its useful life." [30]

Wimer asked City Council on January 17, 2012 for $2,000 to contribute to a contest called Project Gait-Way to solicit new designs for the bridge. Both Norris and City Councilor Kathy Galvin supported the process. Janiczek said she would return to Council with a revised schedule. [31] [32] Council unanimously agreed to the request on February 6, 2012. [33]

The chair of the University of Virginia's School of Architecture at the time, Inaki Alday, said teams of students would participate in the project. In all, 29 teams of graduate and undergraduate students ended up submitting entries, entries that did not have to conform to real-world parameters such as taking the railroad's property rights into consideration. [34]

Unofficial contest supplants the city's official process

While UVa architecture students worked in Campbell Hall on the plan, Wimer said he was getting responses from all over the country. [35]

UVA students unveiled their projects on February 11, 2012 at the Music Resource Center. Over 75 members of the public voted and awarded their vote to an entry called "Belmont Unabridged" that would instead create an at-grade crossing, relocate the City Market to land not under public control, and widening a railroad underpass at Fourth Street Southeast. The downtown pavilion would also be relocated.

Students voted for a project called "Belmont Parkway" which would have included a bridge for vehicular traffic as well as public park on top. [36]

The concept that won the overall competition called for the bridge to be replaced with an at-grade crossing with the Buckingham Branch Railroad. [37]

The result further clouded the direction the city would go as transportation planners weighed their options.[38]

Council rejects at-grade crossing

By this time, Cox had worked for the National Endowment for the Arts as design director and he said he could work with the city on an application for a $150,000 "Our Town" grant that would flesh out the idea of an at-grade intersection. Charlottesville City Council (2012-2013) took up that matter at the February 21, 2024 meeting. In public comment, Wimer and Staengl both pushed for a new direction for the design. They were joined by architect Jim Rounsevell and Brevy Cannon.

The deadline for the grant was March 1 and advocates pushed Council to proceed. The grant also would have occurred outside of MMM's process, which by this point included creation of a review committee to look at the results. City Manager Maurice Jones said there was not much time to write and review the grant application.

Cox said he could help with the application and that he wrote the program's guidelines. He said UVA would write the grant for a project to study how arts and culture could be used as a catalyst for redevelopment. Jones said if council wanted to go that route, the Piedmont Council of the Arts might be the required nonprofit partner.

Huja agreed there was a need for a plan but that the NEA grant may not be the best way to proceed. Councilors Norris and Dede Smith supported applying for the grant. NDS Director Jim Tolbert told Council if the applied for the grant, MMM's work would be kept on hold. City Councilor Kristin Szakos asked if that would threaten funding. Norris made a motion to seek the grant but it failed 2-3. Cox told Council the most important thing is the commitment to a thoughtful process. [39] [40]

Meanwhile, both the Buckingham Branch Railroad and CSX said they would oppose an at-grade crossing for safety concerns. BBR President Steve Powell said claims that rail traffic would decline were not true. Bluestone argued that the city could use eminent domain to compel the railroad to accept a future with no bridge and that the winning design also called for widening of the Fourth Street SE underpass. [41]

Next steps following contest

At the beginning of Council's meeting on March 5, 2012, Huja said that eliminating the bridge would be impractical. Later in the meeting, Tolbert told Council that staff recommended putting aside $150,000 to hire a firm to review the area around the Belmont Bridge. This would not be for the bridge but for a greater area.

NDS Director Jim Tolbert told Council that he would continue working with MMM, city staff and the chair of the U.Va School of Architecture to sift through ideas from the contest. At this same meeting, Council created the PLACE Design Task Force to oversee community design. The group was assigned the task of reviewing the work of the "local architect to work with their design team." [42] [43]

In May 2012, Virginia Secretary of Transportation Sean Connaughton had arranged to fully fund the project after two Albemarle Supervisors asked for it in connection with their support for the Western Bypass. [44] The Commonwealth Transportation Board approved the funding in June 2012. [45]

Siteworks Studios hired to craft alternatives

The design firm Siteworks Studio was hired as a subcontractor, and spent the summer of 2012 taking the elements from design contest entries to incorporate into a new design. [46]

Two alternatives were developed. One would be a replacement of the bridge. The other would be an underpass, with Avon Street dipping 25 feet below below the CSX railroad tracks. Both designs would also have featured a pedestrian-only suspension bridge, a plaza, and a linear park along the railroad.

The PLACE Design Task Force reviewed the proposals in December 2012. The task force recommended the adoption of the underpass scheme because it concluded that it would provide easier and more attractive access to the Downtown Mall and give greater development potential to land south of the railroad tracks. The Siteworks team hired Faulconer Construction to come up with estimates of $15.9 million for the bridge option and $17.3 million for the underpass. [47] [48] The idea of the underpass had the support of the team that won the design contest. [49]

In January 2013, the PLACE Design Task Force recommended pursuit of the underpass option. In a memo to City Council, they said the underpass "provides a more attractive approach to downtown from the south" and it would eliminate "the unattractive and undevelopable spaces under the bridge." They acknowledged the underpass would be more prone to flooding. [50]

Charlottesville sought public input regarding the two designs on February 13, 2013. [51] Council extended the deadline for public comment until March 31. The city produced a fact-sheet on the pros and cons of an underpass that supporters said was flawed. They challenged the $30 million cost estimate for the underpass. [52]

To get an independent evaluation on cost estimates, the city hired the firm Barton Malow to produce new figures. The numbers released in September put the underpass at $27.3 million and the bridge at just under $15 million. [53] After being presented with the numbers, Council directed staff to pursue an "enhanced bridge" but kept the idea of an underpass alive while study continued. [54]

In October 2013, members of the PLACE Design Task Force said they wanted a bridge with two lanes and it should be built in a way to open up nearby land for development. [55]

Public input was again solicited at a meeting in November 2013 at which some participants expressed a feeling they were trapped in an endless loop. Tolbert continued to have doubts that VDOT would fund the underpass. [56]

MMM continued work on the "enhanced bridge" throughout the winter of 2014 and Tolbert told the PLACE group in February there were a few times he had to reject their concepts for not being sufficient enough to satisfy what the community wanted. One concept that advanced at this time was the idea of a shorter span. [57]

However a competing design for an underpass developed by architect Jim Rounsevell was championed by many in the community and was to be presented along side two design scenarios MMM was developing.[58] The architect raised over $8,000 funds from a KickStarter campaign to develop drawings for his option, which would include turning Old Avon Street into a public plaza. [59]

As a meeting of the PLACE Design Task Force in March 2014, ex officio member Galvin said she appreciated the shorter span of the bridge. However, she said she could not make a decision until she saw cost estimates. [60]

On July 21, 2014, Council voted 4-1 to proceed with the "enhanced" bridge design developed by MMM, and unanimously dismissed the underpass concept. Rounsevell called the design "insipid" and continued to accuse the city of deliberately sabotaging the idea. Elected officials explained their reasoning. Councilor Smith said she liked the concept but said a nine-percent grade at the underpass would be too steep. Councilor Szakos said the additional cost for the underpass would divert resources away from other priorities such as school reconfiguration. Galvin, the most enthusiastic supporter of the underpass, said it would be too costly to construct. She was not satisfied with the design that MMM came up with, and wanted to begin the process again from scratch. When she had no support for that idea, she voted against the bridge.

By this time, Bob Fenwick had been elected to Council and said he would have voted to repair the original bridge. He was told that would invalidate the funding allocated to date for the replacement. [61]

However, MMM went out of business leaving the city having to start nearly from scratch.[62]

2015 search for new design firm

A request for proposals for a new design firm was created by the steering committee and was advertised by the end of November 2015.[63]

On October 20, 2016, NDS director Alexander Ikefuna told the PACC-Tech Committee that the Virginia Department of Transportation was reviewing the contract with the unknown firm on issues related to the pay-scale as well as "new provisions from Washington." He said the city attorney's office would have to review any changes that were made.

The project was dormant for many months after the summer of 2014 but a request for proposals had been advertised at the end of November 2015.[63] Negotiations proceeded throughout 2016 before Kimley-Horn was announced.[64]

Kimley-Horn takes on the job

The city of Charlottesville signed a $1.98 million contract with Kimley-Horn in late December 2016 to design an urban design plan for the bridge and the surrounding areas.[65] This came after several months of negotiations over the scope and fee to redesign the bridge following the failure of the now-closed MMM Design to produce a satisfactory alternative.[66]

Kimley-Horn began the public process in February 2017.[67] A survey conducted in the late winter and early spring indicated respondents wanted a functional bridge rather than a majestic icon.[68] Design workshops with multiple committees and stakeholders was held in late April.[69] The steering committee endorsed the basic concept in June 2017.[70] Charlottesville City Council (2016-2017) approved the preliminary design in October 2017.[10]

Kimley-Horn is currently developing construction documents following preliminary design approval from the Board of Architectural Review, the Planning Commission and City Council.[10][71]

Charlottesville City Council (2020-2021) made the final appropriation for the project to move forward on August 3, 2020. [8]

Development timeline

2005

  • May 2, 2005 – Public hearing on appropriations of $1.46 million for repair. [17]

2009

  • April 2009 – MMM Design hired to engineer and design new bridge [20]

2010

2011

2012

2013

  • January 4], 2013 – Charlottesville's Bike and Pedestrian Safety Committee takes a straw poll which indicates majority support for the underpass option [79]
  • January 13, 2013PLACE Design Task Force recommends underpass option [50]
  • February 13, 2013 – Belmont Bridge Conceptual Design Review meeting at Central Library.[51]
  • September 16, 2013 – Council gives direction for staff to pursue an enhanced bridge, but leaves open the option of an underpass if the cost estimates end up around the same. [54]
  • November 21, 2013 – Another public meeting is held to gather input on bridge design [56]

2014

2015

  • November 12, 2015 – City urban designer Carrie Rainey said request for new proposals should be advertised by end of month [63]
  • November 27, 2015 – City issues request for proposals.[81]

2016

2017

2018

  • June 2018 – Geotechnical work begins [84]

2019

2020

  • Spring Charlottesville City Council approved $5 million in CIP funds to pay for the project. [87]
  • August 3, 2020 – Council holds first reading on appropriation for project [88]

Related Media

Underside of Belmont Bridge from East Water Street

"A Tale of Two Bridges" - A video made for Project Gait-Way

<youtube>RXM4TAqTWBs</youtube>

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