Is the convenience of a highway expansion more important than the surrounding environmental consequences?
History and Controversy
Milwaukee’s highway I-94 was first planned in 1965 and built as a branch from the Marquette Interchange to Plankinton Avenue in 1968. Over the decades since, the highway has gone through many expansions and developments that have greatly impacted the lives, convenience, and safety of locals and visitors alike. While these developments have attempted to further improve the conditions of the highways, they have also given birth to a plethora of unwanted hazards and penalties. Even the origins of I-94 in the 1960s weren’t without controversy and resistance from the public. People fought against I-94 for many reasons including the negative effects on the local communities, the energy crisis, rising gas prices, and environmental concerns such as a likely increase in carbon emissions. These protests continued into the 1970s and through court cases and general revolution these protesters managed to stop the construction of the Lake, Park East, Stadium South, Stadium North, and Fond du Lac Freeway.
Unfortunately, much of the damage had already been done to the surrounding communities. Many homes had already been destroyed, once beautiful areas were now barren and worthless, and West Milwaukee lost much of its residential tax base due to the scrapped construction. These damages were particularly impactful to marginalized communities which included African American, Italian, and Latin American demographics.
The next significant and relevant controversy regarding I-94 was the proposal for the Zoo Interchange reconstruction that was first introduced in 2003. The purpose of this reconstruction was to replace decaying concrete and deteriorating bridges as well as to add convenience and rid the highway of traffic congestion. While the reconstruction was necessary, the locals were once again aggravated by the reconstruction and feared for many the same reasons that they did in the 1960s. In 2012 the Wisconsin Department of Transportation announced the final design, this would be a complete reconstruction but with less land usage and less environmental damage than the other proposed designs. A discrimination-based lawsuit against the reconstruction was introduced in August of 2012 with the claim that the construction would impact the local minorities at a disproportionate rate considering many locals didn’t even own any personal automobiles. In May 2014 the Department of Transportation agreed to pay 13.5 million dollars to local public transit improvements and they continued with the reconstruction.
Current Status
Just recently on March 8th, 2024, the I-94 stadium interchange expansion was finally approved by the Federal Highway Administration. This expansion will implement an additional two lanes to the already existing six lanes. This expansion will take place from 16th Street to 70th Street. The exact budget and timeline are unknown, but it is estimated to cost roughly 1.7 billion dollars, and the construction will likely run from 2025-2031. Just like the previous expansions, people are outraged once again for countless reasons.
These are some of the arguments against the expansion:
On the other hand, officials have many reasons for wanting to go through with the expansion.
Here are some of the most compelling arguments provided by many sources including direct information from the Department of Transportation:
Analysis
We believe the best way to resolve the controversy surrounding the rehabilitation and reconstruction of the I-94 freeway is to adopt the Transit/Rehab Alternative proposed by Fix At Six. This alternative involves repurposing, redesigning, and rebuilding the roadway to meet 21st-century needs, while also constructing a modern rapid transit system to improve mobility in the East-West Corridor and promoting thriving, walkable/bikeable neighborhoods in the area. The Wisconsin Department of Transportation's (WisDOT) Final Environmental Impact Statement (FEIS) supports the need to repair the road's pavement and bridges, but emphasizes the importance of minimizing new pavement and keeping the current six lanes. The FEIS makes a strong case that full replacement is needed, and any new pavement should be designed using the latest techniques for minimizing the carbon footprint, managing stormwater, maximizing safety, and ensuring a long life.
Expanding the segment of I-94 between the Zoo and Marquette interchanges by adding new travel lanes and constructing enormous interchanges, as proposed, would have detrimental effects. According to Fix At Six’s alternative plan, it would promote increased vehicle miles traveled, increase greenhouse gas emissions, encourage sprawl development by fostering longer trip lengths, increase polluted runoff to area waterways, and harm the social and economic fabric of the neighborhoods it traverses. While the Purpose and Need section in the FEIS includes some reasonable statements, such as maintaining a key link in the regional transportation system and improving safety, the primary driver behind the proposed expansion project is to accommodate existing and predicted future traffic volumes at an acceptable level of service.
We support the Fix At Six solution because it goes beyond the infrastructure improvements, addressing the broader impacts of the project on the environment and communities. By repurposing and redesigning the roadway to meet modern needs, the solution offers a comprehensive approach that considers the long term sustainability and livability of the East-West Corridor. This aligns with our values of environmental stewardship, making it the more favorable option.
Acknowledgements
We’d like to thank Dan Sellers, the communications manager for the Wisconsin Department of Transportation in the southeastern part of the state, as well as Christopher Zacharias, the project manager for the Interstate 94 Expansion for researching and evaluating a wide range of possible alternatives and providing our team with great information.
References
“A Sustainable Alternative to Expanding I-94 in Milwaukee.” Fix At Six, www.fixatsix.org/wp-content/uploads/2021/09/09_14_2021-Fix-at-Six-Report-Final.pdf. Accessed 5 Apr. 2024.
Bessert, Christopher J. “Milwaukee Freeways.” Wisconsin Highways: In Depth: Milwaukee Freeways, www.wisconsinhighways.org/milwaukee/index.html. Accessed 5 Apr. 2024.
Daykin, Tom. “Interstate 94’s Expansion Will Cost $1.74 Billion and Run through 2031. Here’s What We Know.” Journal Sentinel, Milwaukee Journal Sentinel, 21 Mar. 2024, www.jsonline.com/story/money/real-estate/commercial/2024/03/21/what-we-know-on-i-94s-1-7-billion-expansion-on-milwaukees-west-side/72960570007/.
“How Does Roadway Expansion Cause More Traffic?: Blog: Science Museum of Virginia.” Science Museum of Virginia | For Curious-Minds of All Ages!, 7 Apr. 2023, www.smv.org/learn/blog/how-does-roadway-expansion-cause-more-traffic/.
“I-94 East-West Corridor Study - Environmental Documents.” Wisconsin Department of Transportation I-94 East-West Corridor Study - Environmental Documents, www.wisconsindot.gov/Pages/projects/by-region/se/94stadiumint/info.aspx. Accessed 5 Apr. 2024.
“Interstate I-94, I-894, and US Highway 45 (Zoo Interchange).” Interstate I-94, I-894, and U.S. Highway 45 (Zoo Interchange), Feb. 2012, www.projects.511wi.gov/zoo-interchange-project/wp-content/uploads/sites/71/rod-complete.pdf.
Sandler, Larry. “History of I-794 in Milwaukee.” Milwaukee Magazine, 25 Aug. 2023, www.milwaukeemag.com/how-the-past-of-southeastern-wisconsin-freeways-affects-the-i-794-debate/.
https://tannisfacts.com
Milwaukee’s highway I-94 was first planned in 1965 and built as a branch from the Marquette Interchange to Plankinton Avenue in 1968. Over the decades since, the highway has gone through many expansions and developments that have greatly impacted the lives, convenience, and safety of locals and visitors alike. While these developments have attempted to further improve the conditions of the highways, they have also given birth to a plethora of unwanted hazards and penalties. Even the origins of I-94 in the 1960s weren’t without controversy and resistance from the public. People fought against I-94 for many reasons including the negative effects on the local communities, the energy crisis, rising gas prices, and environmental concerns such as a likely increase in carbon emissions. These protests continued into the 1970s and through court cases and general revolution these protesters managed to stop the construction of the Lake, Park East, Stadium South, Stadium North, and Fond du Lac Freeway.
Unfortunately, much of the damage had already been done to the surrounding communities. Many homes had already been destroyed, once beautiful areas were now barren and worthless, and West Milwaukee lost much of its residential tax base due to the scrapped construction. These damages were particularly impactful to marginalized communities which included African American, Italian, and Latin American demographics.
The next significant and relevant controversy regarding I-94 was the proposal for the Zoo Interchange reconstruction that was first introduced in 2003. The purpose of this reconstruction was to replace decaying concrete and deteriorating bridges as well as to add convenience and rid the highway of traffic congestion. While the reconstruction was necessary, the locals were once again aggravated by the reconstruction and feared for many the same reasons that they did in the 1960s. In 2012 the Wisconsin Department of Transportation announced the final design, this would be a complete reconstruction but with less land usage and less environmental damage than the other proposed designs. A discrimination-based lawsuit against the reconstruction was introduced in August of 2012 with the claim that the construction would impact the local minorities at a disproportionate rate considering many locals didn’t even own any personal automobiles. In May 2014 the Department of Transportation agreed to pay 13.5 million dollars to local public transit improvements and they continued with the reconstruction.
Current Status
Just recently on March 8th, 2024, the I-94 stadium interchange expansion was finally approved by the Federal Highway Administration. This expansion will implement an additional two lanes to the already existing six lanes. This expansion will take place from 16th Street to 70th Street. The exact budget and timeline are unknown, but it is estimated to cost roughly 1.7 billion dollars, and the construction will likely run from 2025-2031. Just like the previous expansions, people are outraged once again for countless reasons.
These are some of the arguments against the expansion:
- The construction will cause harm to local businesses
- People fear that the expansion will lead to higher auto emissions and therefore contribute to global warming
- Like the Zoo Interchange Expansion, it punishes locals by expanding a highway that many of the residents can’t use anyways due to their lack of personal vehicles
- The tax dollars put towards the expansion could have gone towards more important things for the people
- An increased chance of local flooding
- The expansion will make over 600 parking spots at American Family Field unaccessible
On the other hand, officials have many reasons for wanting to go through with the expansion.
Here are some of the most compelling arguments provided by many sources including direct information from the Department of Transportation:
- The expansion is intended to create a less hazardous driving environment
- The project will have 6,000 to 10,000 workers which is great for the economy
- The project will implement more biking and pedestrian trails which are both eco-friendly and beneficial to those without automobiles
- It will supposedly lower pollution rates, although this also includes a future increase in electric vehicles:
- The Greenhouse Gas emissions in 2030 are projected to be approximately 17% to 19% lower than in 2019 while Greenhouse Gas emissions in 2050 are projected to be 22% to 24% lower than in 2019.
- MSAT (mobile source air toxins) air pollution in this corridor will be 73% lower in 2050 than in 2019.
Analysis
We believe the best way to resolve the controversy surrounding the rehabilitation and reconstruction of the I-94 freeway is to adopt the Transit/Rehab Alternative proposed by Fix At Six. This alternative involves repurposing, redesigning, and rebuilding the roadway to meet 21st-century needs, while also constructing a modern rapid transit system to improve mobility in the East-West Corridor and promoting thriving, walkable/bikeable neighborhoods in the area. The Wisconsin Department of Transportation's (WisDOT) Final Environmental Impact Statement (FEIS) supports the need to repair the road's pavement and bridges, but emphasizes the importance of minimizing new pavement and keeping the current six lanes. The FEIS makes a strong case that full replacement is needed, and any new pavement should be designed using the latest techniques for minimizing the carbon footprint, managing stormwater, maximizing safety, and ensuring a long life.
Expanding the segment of I-94 between the Zoo and Marquette interchanges by adding new travel lanes and constructing enormous interchanges, as proposed, would have detrimental effects. According to Fix At Six’s alternative plan, it would promote increased vehicle miles traveled, increase greenhouse gas emissions, encourage sprawl development by fostering longer trip lengths, increase polluted runoff to area waterways, and harm the social and economic fabric of the neighborhoods it traverses. While the Purpose and Need section in the FEIS includes some reasonable statements, such as maintaining a key link in the regional transportation system and improving safety, the primary driver behind the proposed expansion project is to accommodate existing and predicted future traffic volumes at an acceptable level of service.
We support the Fix At Six solution because it goes beyond the infrastructure improvements, addressing the broader impacts of the project on the environment and communities. By repurposing and redesigning the roadway to meet modern needs, the solution offers a comprehensive approach that considers the long term sustainability and livability of the East-West Corridor. This aligns with our values of environmental stewardship, making it the more favorable option.
Acknowledgements
We’d like to thank Dan Sellers, the communications manager for the Wisconsin Department of Transportation in the southeastern part of the state, as well as Christopher Zacharias, the project manager for the Interstate 94 Expansion for researching and evaluating a wide range of possible alternatives and providing our team with great information.
References
“A Sustainable Alternative to Expanding I-94 in Milwaukee.” Fix At Six, www.fixatsix.org/wp-content/uploads/2021/09/09_14_2021-Fix-at-Six-Report-Final.pdf. Accessed 5 Apr. 2024.
Bessert, Christopher J. “Milwaukee Freeways.” Wisconsin Highways: In Depth: Milwaukee Freeways, www.wisconsinhighways.org/milwaukee/index.html. Accessed 5 Apr. 2024.
Daykin, Tom. “Interstate 94’s Expansion Will Cost $1.74 Billion and Run through 2031. Here’s What We Know.” Journal Sentinel, Milwaukee Journal Sentinel, 21 Mar. 2024, www.jsonline.com/story/money/real-estate/commercial/2024/03/21/what-we-know-on-i-94s-1-7-billion-expansion-on-milwaukees-west-side/72960570007/.
“How Does Roadway Expansion Cause More Traffic?: Blog: Science Museum of Virginia.” Science Museum of Virginia | For Curious-Minds of All Ages!, 7 Apr. 2023, www.smv.org/learn/blog/how-does-roadway-expansion-cause-more-traffic/.
“I-94 East-West Corridor Study - Environmental Documents.” Wisconsin Department of Transportation I-94 East-West Corridor Study - Environmental Documents, www.wisconsindot.gov/Pages/projects/by-region/se/94stadiumint/info.aspx. Accessed 5 Apr. 2024.
“Interstate I-94, I-894, and US Highway 45 (Zoo Interchange).” Interstate I-94, I-894, and U.S. Highway 45 (Zoo Interchange), Feb. 2012, www.projects.511wi.gov/zoo-interchange-project/wp-content/uploads/sites/71/rod-complete.pdf.
Sandler, Larry. “History of I-794 in Milwaukee.” Milwaukee Magazine, 25 Aug. 2023, www.milwaukeemag.com/how-the-past-of-southeastern-wisconsin-freeways-affects-the-i-794-debate/.
https://tannisfacts.com