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Chapter ,
PRELIMINARY STREET AND HIGHWAY
Ok - PLAN
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framework for the preliminary long -range street and highway plan, Implicit in this
conclusion Is that the preliminary plan should include some elements of the other
alternatives in order to create the best composite system.
Preliminary Plan
Figure 14 illustrates the preliminary street and highway plan for Du Page County.
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This plan endorses prior proposals for the Elgin - O'Hare and FA 431 . Freewa s !
Freeways. With
• respect to the former, this endorsement assumes that a workable solution will he
found for its pastern terminus in the vicinity of O'Hare International Airport, in
t,,hich effective connections to existing components of the regional highway
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system would be developed. Ikiterchanges would be spaced along these two
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= freeways generally at one- to two -mite intervals. 'The locations would provide
needed access in relation to the major streets. In turn, these routes serve important
land -uses or provide a means to direct the flow of non- county traffic to bypass
certain areas of Du Page County, in particular, neighborhoods located along the
northern and eastern edges of the county and in the Illinois 53 corridor.
70
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The year 2000 assignments for these routes clearly establish a high level of
traffic demand and, consequently, support justification for the routes. Of the two,
Elgin-O'Hare has greater potential to reduce traffic or. some Individual county
arterials. FA 431 would have a more widespread impact by collecting traffic and
reducing volumes on more parallel streets (but the reductions would be smaller
than the changes produced by Elgin - O'Hare).
In addition to these new routes, the plan proposes continuation of Illinois 83 as a
regional route, but with an access control or expressway design concept developed
throughout its length. This change would attempt to'balance the need to upgrade
capacity of the route while still providing efficient access to major developments in
the corridor. The route would have a series of interchanges, i.e., Elgin - O'Hare,
Irving Park, 1.90, Lake, Nop th, St. Charles, Roosevelt, East -west Tollway, 31 st, 40
Ogden, 55th, 03rd, Plainfield, and 1 -55. Dua to the intensity of existing and
potential development in the segment from Roosevelt Road to Ogden Avenue,
special access designs with possibly a frontage road system should be
considered.
Among the entire set of proposed interchanges (or omissions) providing
access to the six major regional routes (freeways, expressways, or tollways) In the Mik
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county, several have significant aspects. Interchanges on Illinois 83 at North '
Avenue and ot. Charles Road are needed for capacity reasons. Extreme congestion '
occurs at these locations. Nigh -type, at -grade solutions have been used, but grade }
separations are needed to achieve a reasonable level of service ,
, particularly
considered year 2000 conditions.
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No interchange is proposed for St. Charles Road at RA 431. This Is based upon
design and functional factors. Open space In the vicinity of a potential Interchange
represents a major constraint and negative Impact. An Interchange would Intensify
the arterial role of the route, but it tends to function more as a local arterial (for
short trips) serving established 4,ummunitles, and right -of -way and pavement
widths have definite limits.
Interchanges along the East-West Tollwa'y are more widely spaced than alor j
freeways. This is one factor contributing to a relatively low volume, Wimate,
particularly west of Illinois 53. A new interchange is proposed for Mill Street
(Naperville area). This would provide accass, for a new north -south major arterial,
created by connecting County Ferm road and Mill Street. Estimated volumes
Indicate a high demand potential for the arterial and interchange. Furthermore, the
corridor along the toliway from Naperville Road west contains large parcels of
developable land. Construction of projects involving region - serving land -uses In
this ar6a is very probable. Tollway access would be a positive and appropriate
element serving this development pattern, since such land -use is shown on the
adopted county land -use; plan.
Finally, an interchange is proposed for Illinois 83 at Plainfield Road. This is
intended to provide access to 75th Street as well. By using the Plainfield Road
location, an interchange would have a two -sided service area --east and west of
Illinois 83. Because 75th Street Is and will be a major route in ®u Page County, it
requires an interchange at Illinois 83. However, 75th Street as a major arterial ends
at Illinois 83. P n Interchange at this location would be limited primarily to serving
areas west of Illinois 83. Furthermore, use of the Plainfield Road location would
create a more optimum spacIng between the 63rd Street and i -55 Interchanges.
72
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The major and minor arterial streets in the preliminary plan would be organized
within the framework created by these regional routes and Interchanges. The
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following lists categorize the arterial by cardinal direction and whether they have
countywide length or are sector - serving (less than full county) streets.
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A. East -West Arterials
1. Countywide
t
_- Devon Avenue
{
-- Irving Park Road
-- Lak: Street
�- Army Trail Road
-_ North Avenue
-- St. Charles Road /Geneva Road
- Roosevelt Road
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t -- Butterfield Road
-- Ogden Avenue /Aurora Road
-- 55th Street/ Maple Avenue / Neu York Avenue
-- 75th Street
2. Sector
-- Stearns Road
-- Schick Road
i -- Fullerton Road
-- Grand Avenue
c
-• 22nd Street
-- 31 st Street
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-- Wood Dale Road /Villa Avenue/Summit Avenue /Cass Avenue
-- Prospect Road / Addison Road / Meye Road/Fairview Avenue
-- Main Street (Lombard) /Highland Avenue; Main Street (Downers
Grove) / Lemont Road
-- Illinois 53
-- Schmale Road /Naperville Road /Raper Boulevard /Washington Street
-- County Farm Road/ Mill Street/ Plainfield - Naperville Road
-- Illinois 59
2. Sector
-- Madison Street
-- Finley Road / Belmont Road
-- M ed i nah Road
-- Glen Ellyn Road /Main Street (Glen Ellyn)
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-- Warrenville Road
-- Dlehl Road
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-- 63rd Street/ Hobson Avenue
-- Plainfield Road /83rd Street
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- 87th Street
91 st Street
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S. North -South Arterials
1. Continuous
-- York Road
-- Wood Dale Road /Villa Avenue/Summit Avenue /Cass Avenue
-- Prospect Road / Addison Road / Meye Road/Fairview Avenue
-- Main Street (Lombard) /Highland Avenue; Main Street (Downers
Grove) / Lemont Road
-- Illinois 53
-- Schmale Road /Naperville Road /Raper Boulevard /Washington Street
-- County Farm Road/ Mill Street/ Plainfield - Naperville Road
-- Illinois 59
2. Sector
-- Madison Street
-- Finley Road / Belmont Road
-- M ed i nah Road
-- Glen Ellyn Road /Main Street (Glen Ellyn)
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-- park Boulevard
-- Leask Lane /College road
-- Gary Avenue
-- Washington Street
-- Kress Road / powis Road
Figure 14.also indicates the lane requirements of this overall system. The
freeways and tollway are largely six -lane (or more) facilities. This Includes Illinois
83. while the estimated peak -hour traffic demand for Illinois 83 suggests that a
four -sane expressway might work, there are practical reasons why a six -lane facility
should be considered. It Is expected that Illinois 83 will be used mostly for short
and intermediate length trips (two to 10 miles). This Involves a high volume of traffic
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on interchanges. Furthermore, the segment between Roosevelt Road and Ogden 4
Avenue will require a special design character to provide for efficient access and
traffic flow. 'These expected characteristics Indicate that two lanes per direction
would riot work well, i.e., the outside lane will not have the traffic efficiency to
provide the required overall capacity needed to accommodate year 2000 demands.
Last, because the total Illinois 83 improvements Involve a series of structures,
options for added capacity should be built into the facility (i.e., more than four
lanes plus adequate median and bridge shoulder widths).
The arterial system would be composed mostly of four -lane facilities. Major
intersections typically would have left -turn lanes as well. The exceptions to this
cross section would be as follows:
1. Seventy -fifth Street: six lanes and turning lanes needed in section from Illinois
53 to Illinois 83.
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2. -Butterfield Road/22nd Street: six lanes and turning lanes needed from Highland
through the Oakbrook Shopping Center area.
3. Illinois 59: six lanes and turning lanes needed from the toliway to 75th Street.
4. North Avenue: very high demand and a land -use pattern with continuous
commercial and Industrial development requires special design, probably
using frontage road system, i.e., four lanes of frontage road plus four main,
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lines and turning lanes to be developed west of Illinois 53,
5. Roosevelt Road: estimated traffic demand Is high enough to warrant a six -lane
cross section, but severe right -of -way constraints and other conditions
preclude such a facility; a transportation system management (TSM) approach
with selected improvements Is required at a4 l.rninimum.
Improvement Projects
The preliminary plan entails a series of minor and major improvement projects.
These projects are illustrated in Figure 14. Tables 15 and 19 summarize these and
Include a generalized cost estimate. Pavement and right -of -way width standards
are the same as those 6ted in �:hapter 5.
Overall, the program would c; t approximately $530,000,000 In 1978 dollars,
excluding any rehabilitation and restoration projects needed on the existing or
future system (those built between now and year 2000). As Indicated in Chapter 5,
resources available for Du Page County may be approximately $290,000,000. This
assumes similar financial conditions and programs as exist today. Clearly, such an
estimate must be considered as a gross approximate, since so many variables
affect resources, many of which respond to exogenous factors, such as "politics of
the middle east."
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Further, Information recently developed by CATS as part of its year 2000 regional
plan update activity indicates that street and highway maintenance costs are
consuming ever increasing proportions of available funds. To year 2000, this could
be two - thirds of available funds.
The impact of this financial overview is that one or a combination of the
following should happen to balance cost and resources
1. The list of projects Is reduced by eliminating Improvements.
2. Projects are deferred to a post year 2000 program.
3. The amount of local funds is significantly increased, this would be over and
above the amount needed to match state and federal funds.
4. More projects or portions of more projects are considered to be off -site
Improvements and to be paid for by land developers.
5. Du Page County's share of state and federal funds is increased relative to
other counties.
6. New state or federal aid programs are Instituted, thus creating additional
resources.
7. The Inflation rate is reduced to a level less than the growth of motor fuel and
other tax receipts.
Items 1 and 2 are choices that can be made by decision - makers involved In the
planning process: More will be said about this later In the chapter. Items 3 to 7 are
Issues about which one can only speculate. They represent areas of public policy
and strategy which require Immediate attention.
•C
By recognizing all of these matters pertaining to developing a financial program
to Implement the street and highway plan, one conclusion is inescapable: It Is not
enough to view a long-range plan as a target toward which public actions are
directed; the plan Is based upon so many uncertainties and assumptions that to
use It as a target requires daily and continuous management and also requires that
much of the focus for management be on turning "assumptions" into fact.
Thus, it should not be decided at this time that the apparent gap between
proposed program cost and resources renders the plan unrealistic. It is possible
that conditions could change and a financial balance achieved.
Plan Staging
For purposes of Implementation, the preliminary plan has to be divided Into
workable Increments. This reflects financial or dollar flow conditions and growth
trends In demand for transportation service. The basic goal of the latter is to keep
service In balance with demand, not too far ahead or behind. �
Strategy
For purposes of this planning activity, staging will be defined as organizing
improvement projects into five -year action programs. In order to distribute projects
In this manner, a strategy or guide is desirable. This will achieve a more logical and
consistent overall program and aid in achieving objectives In a sequential order
compatible with local priorities. The selection of a strategy should consider the
following:
1. Existing situations involving critical capacity deficiency and /or high accident
locations should be addressed, giving added importance to those capacity
problems which extend over longer periods of time (e.g., a one to two hour
problem versus a 15- minute congestion period) and to those locations with
high accident rates.
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2. wornmltted major land -use developments which generate substantial traffic
volumes.
3. Development of a continuous level of service (to prevent bottlenecks) In
Individual corridors.
4. Opportunity for right -of -way acquisition or protection.
5. Fiscal capability.
6. The time required for approval, design, right -of -way acquisition, utility pre-
paration, etc., In order for a project to proceed from plan to Implementation.
7. Coordination with improvements just beyond the county line.
6. Creation of bypass routes to reduce or avoid undesirable penetration of
certain land -use areas by traffic.
9. Creation of an accessibility pattern that will encourage development (not yet
committed) in certain areas. r
10. Provision of cr Ador capacity as a contingency against potential delays In
major regional route Improvements.
Recoimmed oded Stages
In order to apply the above considerations in developing a staging strategy, the
Iist ' of physical improvements (Tables 16 and 19) was compressed Into projects
identified by route or street. Table 24 lists these and describes how the above
staging considerations might apply. The table indicates that some projects would
have an effect on many items and some projects on only a few.
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While priorities have not been established (and perhaps cannot be) for the
staging considerations, the FADS project selection procedure used by the Du Page
Mayor's and Manager's Conference can provide a point of beginning and con -
sistency. This procedure gives major Importance to providing capacity and
reducing accidents. Second, It seems evident that prompt consideration would be
given to street and highway projects needed for major land -use developments.
On this basis, the projects affecting these two problems (congestion and
accidents), would be candidates for the initial stage. Projects Involved with
inducing land -use development, creating a contingency for regional route
improvements, and achieving a continuum In level of service would be candidates
for intermediate stages. Remaining projections wc�:ld be allocated to the final
stage.
Using the projects listed In Table 20, the preliminary recommended staging plan
is as follows (see Figure 14 ):
Initial
(first five years)
Illinois 33
Roosevelt Road
North Avenue
o`,rmy Trail Road
Butterfield Road
Gary Road
Addison /Fairview
75th Street
Intermediate
(five to 10 years)
Diehl Road
Elgin - O'Hare
Illinois 50
Schmale /!Naperville
Illinois 53
Devon avenue
Irving Park Road
Lake Street
Highland/Lemont
Final
0 0 to 20 Years)
FA 431
Cou my Farm / M I I I Road
Roselle Road
warrenvi I le
63rd Street
55th Street
This list must be regarded as preliminary. Many projects involve several
agencies; this requires agreements on responsibility and cost participation. The
availability of funds is another major variable affecting this schedule.
84
d
Unresolved Transportation Needs 10
The recommended plan, If all projects are Implemented, will satisfy most of the
long -range needs. However, the recommendations were tested In terms of
Implementation potentials. Desirable projects (for demand reasons) that would
have major negative impacts were excluded, every though justification for them In
terms of traffic demand would exist.
The net results of the approach is that certain traffic demands cannot be met.
These would be as follows:
1. The northwesterly corridor defined by North Avenue to Lake Street from
Illinois 33 west to* at least Cary Road. The estimated capacity shortfall is,
approximately 40,000 vehicles per day.
2. The Roosevelt road corridor from Illinois 83 west to Gary Load. The capacity
shortfall is up to 15,000 vehicles per day. 10
3. Approach route and access capacity for major activity centers:
-- Oak Brook: the problem is to provide the capacity needed to sustain
growth of the center.
-- Bloomingdale West: growth of the center requires substantial Infrastructure
of services.
-- Tollway Corridor (Naperville Road West): growth potential Is very large
given the amount of developable land, the issue may be timing, i.e., whether
It occurs before year 2000.
85
1
4. The of f1iianclal resource availability may result in other system
Insufficiencies. .
All of these probabilities indicate that other actions mast be considered,,
developed, and implemented In parallel with the evolution of the street and
highway system.
Means to a solution
Essentially, the preliminary street and highway plan represents the traditional
approac;i to satisfy needs by Increasing the capacity of the transportation system.
This approach is n3t feasit:,.: for the reasons cited. Wherefore, It Is necessary to
consider approaches wn!rh affect travel demand. The latter is not new to the fleld of
transportation pla.r... u ng. it Is becoming more and more prevalent. Transportation y
system manages icnt requirements ire one outgrowth of the widespread
recognition of this problem.
For the conditions expected in Du Page County, the following specific means
could be considered (singly, or in combination) as a way in which the long -range
travel needs can be eccomm®dated:
1. Demand Modification
-- Punning policies can be designed to restrain population growth so that it
Is significantly less than the forecast.
-- Planning policies can be used to restrain travel In the county by discouraging
some additional commercial/ industrial development and reducing employ-
mcnt oppportunities.
-- Planning policies can be used to reorganize basic land -use patterns; that is
density aria coi'centration of activities can be increased to create more
multiple- function communities (live and work in same area) so that
communtation patterns are changed (reduced trip length).
I
-- Management activities and policies can be employed to create auto -use
disincentives (e.g., parking, pricing, access restriction, au..)-free zones).
-- -Timing of major land -use development so that a better balance between
demand and capacity Is retained.
2. Transportation System Service
-- The role of public transportation can be increased substantially.
-- Adoption of capacity restraint policy (allow congestion to Increase to some
equilibrium level) would encourage changes in lifestyle (trade habits) or
0
alter development potentials (reduction or redistribution).
-- Adoption (by all communities In county) of a policy that would increase
off -site improvements and thus, increase the amount of financial support
provided by the private sector for transportation projects.
-- Utilization of transportation management techniques to maximize the
efficiency (people- carrying ability) of the system. This could include an
access control policy for arterial streets that would protect the capacity of
major streets from Inefficient access, such as typified by "strip" develop-
ment.
To indicate the extent to which some of the above methods would have to be
applied, the year 2000 traffic assignments and proposed capacity were compared
on a screenline basis (average of 10 screenlines throughout the county intersecting
all travel corridors). This comparison indicated that the average capacity shortfall
(using standard assumptions about peak -hour factors and directional distribution
of traffic flow) could be approximately 26 percent.
WN
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On this basis, it could be suggested that trip - making (volume of origins an or
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destinations by county residents or activities would" have to be reduced by 26
, percent to balanca the system. Since dwelling units and employment are the
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Independent variables used by CATS to estimate future travel, target reductions for
these two land -use parameters could be Identified to achieve trip reductions. This
computes to be either a reduction In dwelling units byapproximately 58,000 (about
Y41 V!
AM? • )
- 200,000 persons) by year 2000 or a reduction In employment of 69,000 jobs by year
d` 1
Y
fio
3 4: 2000 or combination thereof. Clearly, these are significant changes. To achieve
them, a major shift in public policy by the county and municipalities would be
necessary. At this time, it cannot be determined whether such a unified approach
would be acceptable. The issues of tax base, competition, employment, image,
etc. are vary powerful motives to not adopt such constraints.
Similarly, the other methods that could be used to balance demand and supply
represent sensitive and important public Issues. These need to be addressed as
part of continuing planning activities. One approach already has been the subject
r
of an extensive planning program -- public transportation. An opportunity exists to
5 develop a plan for this mode that would achieve a long -range role or function that
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Is in balance with the street and highway system.
Increased Role for Transit
Transit offers a means to substantially increase capacity in corridors with high
travel demands In terms of the volume of people that can move In the peak hour or
per day. i~urthermore, if widespread, convenient levels of transit service were
available, it could begin to replicate the function of the "second auto" for many
households.
While this study did not consider the possibilities for transit In detail, it is
possible to identify the constraints and opportunities for transit that can help to
clarify what role it might be able to achieve.
Given the unresolved areas of need In the long -range street and highway plan,
the first step is to determine whether the existing transit system concept could
satisfy such needs.
Service Grien to tion Needed
The orientation of service to balance highway system capacity shortfall would
include:
1. Transit must accommodate 'external/ internal trips; thus, intercounty service
Is essential.
2. Geographic pattern.
-- Not to Chicago central area.
-- East -west along North Avenue (Carol Stream to Oak Dark).
-- Northwest- southeast (north Cook County to Illinois 33 corridor).
-- Northeast- southwest (Bloomingdale or Glendale Heights to Schaumburg,
Woodfield or Elk Grove Village).
3. Commuter rail (high speed, long distance service) is not useful.
4. High-capacity potential for peak hour is necessary.
5. Transit travel time must be competitive with the automobile in a reliable manner.
Existing Service Concept
The following describes the principal attributes of the existing transit service
system:
1 . Emphasis is on work trips to the Chicago central area.
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89 4
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2. The system serves as a feeder base for, commuter rail, with a low level of
service and capacity; it provides some intra - community service.
3. It R rovides some limited intercommunity service, concentrated In older,
established municipalities.
Possible Transit Concspts
By comparing future service needs with the existing concept,, it is clear that
major changes in system type and orientation would be necessary
to modify and extend the existing transit system so that it couid satisfy the travel
demand not served by the highway system (due to projected capacity shortfall).
Such changes would require a long -term evolution. it is possible that there would
be four identifiable stages in this evolution.
-- Stage No. 1: Make the Auto
Work.
Given the dominance of
the auto and the
'
existing commitment to this
move,
the first stage involves
individual adjust -
ments in order to continue use of the auto. Characteristics may be:
a. Reduce expectations, i.e., adjust to greater congestion.
b. Alter travel routes.
c. Alter travel time.
d. Change residence location.
e. Change place of work.
-- Stage No. 2: Collective Activities. After exhausting individual choices,
motorists would tend to turn toward group activities using the auto. This could
be tied to certain incentives and personal objectives to save travel expense and
reduce the tensionlstrair, of driving. Characteristics could be:
a. More use of car-pooling and van - pooling.
1
b. Acceptance of high - occupancy vehicle facilities.
c. (Pricing to encourage high - occupancy vehicle travel.
d. Restrictions for single- occupant autos.
e. Reduced auto ownership (autos per dwelling unit).
f. Shift to more concentrated residential and employment areas.
-- Stage No. 3: Enlargement of Flexible Transit. In this stage, bus transit would be
substantially increased. route structures would coincide with key inter- and
Intra - county travel corridors.
-- Stage No. 4: Addition of Higher Form of Transit. In this stage, Increased transit
use would create the need to Increase peak -hour capacity of transit. Separate
transit -rig hts -of -way would emerge.
It rnust bc ; ecognized that the above scenario is conditional and quite uncertain.
It reflects a recognition of the general reluctance to changing lifestyles implicit In
shifting from auto to regular transit use (excluding commuter rail patrons). It is
possible that other events or developments could occur that would abort the above
sequence before or during Stage No. 3. Land -use patterns might shift to eliminate
the highway capacity problems expected by year 2000. Other changes in
communication systems may occur, reducing the need for personal travel. The
pessimistic energy outlook is another variable that would impact the system
drastically.
Even though these problems may occur, transit remains a viable element for the
long -range system and would be one element In an overall set of transportation
policies.
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DUPAGE COUNTY TRANSPORTATION -STUIDY
I fit
Preliminary Highway Plan
RECOMMENDED IMPROVEMENTS FuNcTK)NAL CLASSFICATION
now freeway exb" Wq)oBed
AMR= 4 lanes upgraded to 6 lanes freeway
4 lanes upgraded to 5 18nGS P*Mww arta►ki
now 4 lanes ff*W arterial
.,cwAmww 2 lanes upgraded to 4 lanes major collector N
now 2 lanes 0 IlIftcherve (grade separated) r_%e_F:7=c
ROUM W ACCESS WWROI.
FIX&
epa ion Du Page County Regk)nW Pig Commission
grade snit
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C""hapter 7
ACTION PROGRAM
The next step in the transportation process Is the action program required to
begin the implementation process. The following are recommended:
1. Presentation of plan to municipalities, Du Page Mayor's and Manager's
Conference, ®u Page County Road Commission, and citizen groups to gain
their endorsement (or suggested changes).
2. Adoption of plan by Du Page County Board and its component agencies
(Planning Commission and Road Commission).
3. Specific incorporation of segments of the plan into municipal plans.
4. Approval of first -stage program by implementing agencies and ratification by
Mayor's and .Manager's Conference to guide their PAUS project decision-
.making.
5. Authorize detailed studies of travel demand and development of alternative
policies for specific Implementation to meet the demand.
9J ' ;