CUY SR 291-02.90

Sponsor: City of Brook Park
Estimated Total Cost: $82,150,000 (all phases)
Proposed Source of Federal Funds: TRAC (Transportation Review Advisory Council)

History/Background: The City of Brook Park (project sponsor) reports it is undergoing a transformative period of economic growth that necessitates a strategic investment in its transportation infrastructure.

The sponsor reports the proposed improvements will ensure the area can sustain and capitalize on this growth, driven by several major public and private initiatives, including, Blue Abyss’ planned $250 million advanced extreme-environment research, development, and training facility located near NASA Glenn Research Center; Cleveland Hopkins International Airport’s $1.6 billion modernization, including a new terminal and upgraded transportation facilities; and a prospective $3.4 billion redevelopment of the former Ford Motor Company site into a new domed professional sports stadium and mixed-use district. According to the sponsor, all these developments rely on the same public infrastructure network.

The sponsor submitted an application to the Transportation Review Advisory Council (TRAC) for funding. Traditionally, NOACA is notified when an application in their region is received and their input is requested, including how the application ranks in their priority project list and if a project is included on their long-range plan. NOACA was asked to submit a priority project list and supporting information prior to regional presentations.

On June 13, 2025, the NOACA Board of Directors adopted Resolution 2025-020b, stating it does not recommend and does not assign a priority ranking to the City of Brook Park Public Infrastructure Improvements Project at this time, primarily due to insufficient information to evaluate and rank the project. 

NOACA acknowledged that an application was submitted to TRAC. However, the proposed public infrastructure improvements project is not currently on NOACA’s long range plan. Moreover, the proposed project has not been through NOACA’s Project Planning Review (PPR) process. This being the case, it would have been premature to recommend it for funding prioritization until NOACA had the opportunity to fully assess the proposed project through its PPR process.

Proposed Project: The proposed project includes infrastructure improvements to improve traffic flow within an economic development area located approximately 0.5 miles east of Cleveland Hopkins International Airport and directly west of the I-71/Snow Road interchange. Within the project area is a 175-acre former Ford Plant site that is the proposed location of a Cleveland Browns domed stadium (“Stadium”) and a multi-use development (“Development”). The site is bounded by a combination of frontage roads from southwest to north, Snow Road, Five Points Road, Engle Road (SR 291), and Henry Ford Blvd (SR-291).

The sponsor reports that the design work for the proposed improvements has been divided into Buildable Units (BU) as described below and depicted in the project map (illustrations). According to the sponsor, the design work includes developing detailed construction documents prepared in an ODOT-acceptable format. Design elements include roadways, structures, stormwater, drainage, lighting, maintenance of traffic, signing and pavement marking, water work, impacts to sanitary sewer, and utility coordination. The sponsor reports that all work will be performed in accordance with ODOT standards, including planning, preliminary, and final design services.

The buildable units (BU)s are as follows:

BU 1 - I-71 Northbound (NB) Exit Ramp Improvements (Project Components - Turn Lanes, Widening): The sponsor reports that historic data shows that 67% of gameday traffic comes from south of Snow Road. According to the sponsor, it is expected that event traffic will lead to traffic congestion in the I-71 NB direction, which could also impact airport traffic using Snow Road. As a mitigation measure, the sponsor proposes an additional left turn lane will be added to the Snow Road / I-71 NB exit ramp. The sponsor also reports that the widening is planned to be done on the west side of the existing ramp to avoid impacts to residential properties on the east. According to the sponsor, minor modifications to the NB cloverleaf entrance ramp will be required, to allow for the widening of the NB exit ramp. The estimated cost of BU 1, provided by the sponsor, is $1,240,000.

BU 2 - I-71 Southbound (SB) Exit Ramp Improvements (Project Components - Intersection Improvement, Rail Grade Separation, Signage, Pavement Marking): This unit includes proposed improvements to the I-71 SB exit ramp to Snow Road westbound (WB), I-71 SB slip ramp to Engle Road southbound with the elimination of the northbound movement over the CSX tracks, WB Snow Road slip ramp to Engle Road southbound, and the addition of an I-71 SB exit ramp flyover bridge to Ring Road. The I-71 SB Exit Flyover ramp to Ring Road includes a (5) span, curved steel plate girder bridge, with an approximate length of 600’ carrying (2) lanes of I-71 SB exit traffic to Ring Road (SR-291). The bridge will be elevated, spanning Engle Road and CSX RR. Approach embankments will be supported by mechanically stabilized earth (MSE) walls at each end. The estimated cost of BU 2, provided by the sponsor, is $21,840,000.

BU 3 - Snow Road/Ring Road Connector (Project Components - Historic Structure, Intersection Improvements, Major Widening, Signals, Streetscape Enhancements, Turn Lanes, Signage, Culverts): This unit provides access that does not currently exist for all Snow Road traffic to Engle Road and includes a new intersection installed at the first span of the existing Snow Road bridge. Modifications to the existing Snow Road bridge are anticipated, including the elimination of the first 2 two bridge spans with a new abutment constructed east of Bent 2. New retaining walls are proposed to support the north-south lanes of the Snow Road/Ring Road intersection. This unit also includes roadway improvements to Snow Road from SR 237 to the Snow Road bridge. Five Points Road will be relocated by removing the one-way section along the site perimeter, and the section south of Snow Road will have a cul-de-sac and a new intersection with Snow Road. The estimated cost, provided by the sponsor, of BU 3 is $9,890,000.

BU 4 - SR-291 (Engle Road) (Project Components - Realignment, Pavement Rehabilitation, Major Widening, Pavement Marking, Signage, Streetscape Enhancements, Rail Crossing Upgrades): This unit involves the widening and realignment of approximately 1,300 feet of Engle Road, starting just south of Snow Road, continuing beneath the Snow Road bridge and the proposed I-71 southbound exit ramp flyover bridge (included in BU 2), and ending at Ring Road. According to the sponsor, alternative alignments are currently being evaluated to avoid the need for permanent right-of-way acquisition. Additionally, the required number of lanes will be determined based on the results of the traffic study. The sponsor also reports that a crash analysis along Engle Road within the project limits revealed 24 crashes over the three-year period from 2022 to 2024, with 16 of those being angle or sideswipe collisions. This crash pattern highlights a safety concern that the proposed realignment seeks to address by eliminating the confusing configuration of one-way roadways currently present in this area. The estimated cost of BU 4, provided by the sponsor, is $1,770,000.

BU 5 - Ring Road Improvements (Project Components - Major Widening, Pavement Rehabilitation/Markings, Streetscape Enhancements, Signals, Culverts, Pedestrian Facilities): This unit includes 5,300’ of roadway improvements creating a “ring” around the Stadium and Development Site. Beginning 2,200’ south of Brookpark Road, this five-lane section includes the reconstruction of Engle Road/SR-291/Henry Ford Boulevard (Ring Road), including pavement replacement with curb and sidewalk on both sides of the roadway. South of Hummel Road, the roadway widens from six to seven lanes, creating an intersection with the realigned Engle Road and the lanes from the Snow Road to Engle Road Connector and the new I-71 SB Flyover ramp. The portion of roadway from this intersection to the Connector is considered Ring Road during the design phase. The sponsor reports that the number of lanes needed along Ring Road will be confirmed through the traffic study currently underway. The estimated cost of BU 5, provided by the sponsor, is $14,600,000.

BU 6 - Pedestrian Bridge (Project Components - Pedestrian Facility and Streetscape Enhancements, Signage): According to the sponsor, it is anticipated that all off-site parking will be northeast of the project site along Engle Road, West 164th Street, and Brookpark Road. The sponsor proposes a pedestrian bridge to provide safe access for pedestrians utilizing off-site parking. The location of the pedestrian bridge is being investigated. The preferred option would be to construct a pedestrian walkway from West 164th Street, parallel to I-71 on the east side, south to Hummel with a pedestrian bridge over Engle to the development site. The estimated cost of BU 6, provided by the sponsor, is $14,940,000.

The project’s estimated total cost, provided by the sponsor, is $82,150,000. The estimated cost of preliminary engineering preliminary development (PEPD) is $4,800,000. The estimated cost of preliminary engineering detailed design (PEDD) is $6,500,000. The estimated cost of right-of-way (RW) is $550,000. The estimated cost of construction (C) is $70,300,000. The PEPD, PEDD and RW will be funded locally. The sponsor applied to the TRAC for $70,300,000 to fund construction (C).

BU 7  -  GCRTA Transit Station (Project Components -Transit platform, a ramp to a pedestrian bridge and a clear span pedestrian bridge): According to the sponsor, GCRTA has participated in numerous regular meetings with Brook Park and Haslam Sports Group in connection with the project to maximize transit impact. The sponsor reports that a potential new GCRTA transit station is in planning and a conceptual design is complete with a construction cost estimate. Funding is not yet determined. The estimated cost of BU 7, provided by the sponsor, is $40,000,000.

The project’s estimated total cost, provided by the sponsor, including the transit station (BU 7), is $122,150,000. The estimated cost of preliminary engineering preliminary development (PEPD) is $4,800,000. The estimated cost of preliminary engineering detailed design (PEDD) is $6,500,000. The estimated cost of right-of-way (RW) is $550,000. The estimated cost of construction (C) is $70,300,000. The PEPD, PEDD and RW will be funded locally. The sponsor applied to the TRAC for $70,300,000 to fund construction (C) of BU 1 - 6.  The estimated cost of BU 7, provided by the sponsor, is $40,000,000. Funding is not yet determined.

Staff Comment (Summary):

RECOMMENDATION

• Off-site parking is a major question for this development project. It is staff’s understanding the development is estimated to provide approximately 12,000 to 13,000 spaces on-site.  According to the sponsor, it is anticipated that all off-site parking will be northeast of the project site along Engle Road, West 164th Street, and Brookpark Road. However, it is unclear where necessary off-site parking along these roadways will be located and available. A detailed study on where these vehicles will park on event days and how many users are estimated to travel by transit or rideshare services is recommended in order to understand the impacts to traffic in the surrounding area.
  
  
• The project lacks a major transit component aside from referencing the proximity of the GCRTA Brookpark Red Line station, which is located roughly a mile walking distance from the proposed development. With the concern about available parking offsite, it would be beneficial to have dedicated transit serving the site. One option could be constructing a new red line rail station at the site to take visitors directly to/from the development, which was shown in very early renderings of the planned development. A less costly, but also less impactful option, would be to have frequent shuttles bring transit visitors to/from the Brookpark station. Both options would encourage transit usage, reduce congestion, and decrease the need for additional parking in the surrounding area, with the on-site rail station having the largest regional impact.
  
  
• There is no information regarding accessibility features of the pedestrian facilities, particularly the bridge. To evaluate the full impact on pedestrian site access, it is important to understand how accessibility will be addressed. It is recommended to provide more detail in this area.
  
  
• A traffic study has been completed.  Staff are unable to provide a thorough analysis until review of the traffic impacts. This is a critical component to the project as there are many unanswered questions related to the interaction between the stadium, particularly on game days, and the airport which is the largest in Ohio.
  
  
• A multijurisdictional approach is preferred to address development impacts on transportation infrastructure. Consideration should be given to a more inclusive project submission that reflects traffic impacts on other communities, particularly adjoining jurisdictions.

INFORMATION

• This project is located within the Big Creek watershed. Aquatic Life Uses are impaired due to flow regime modifications, habitat alterations, organic enrichment and urban stormwater pollutants. This watershed is also impaired for recreation contact due to E.coli.
  
  
• While construction of the proposed project may cause temporary fluctuations in regional air quality, the project intends to limit traffic congestion, which should improve the overall air quality.
  
  
• This project will simplify the roadway network at Snow Rd., Engle Rd. and Five Points Rd. and make it easier to traverse. The existing configuration can be confusing to navigate with many one-way road segments and turn-arounds. The proposal adds signalized intersections and eliminates the one-way segments resulting in a more traditional road network. This will likely result in a safer network for vehicular traffic.
  
  
• Cost estimates are preliminary. The opinion of probable cost is for 6 of the 7 buildable units (BUs). The schedule is for all BUs to be constructed simultaneously between 1/2027 and 5/2029.
  
  
• The proposed infrastructure improvements will require coordination with roadway and bridge projects planned for SFYs 2027 and 2028.

Committee Review:

Transit Council:

• A member of the Transit Council emphasized the importance of recognizing that transit systems carry ongoing costs when routes and services are adjusted and expressed hope that these considerations will be carefully evaluated as part of the project, rather than assuming that transit providers will simply appear to resolve issues.

Bicycle Pedestrian Advisory Council (BPAC):

• A member of the BPAC emphasized the importance of convenient transit connections, particularly given GCRTA’s plan for a new station adjacent to the airport, so that visitors would not need to walk long distances to reach the site. The member also noted that the only pedestrian bridge proposed thus far connects to a future parking area, with few other non-vehicular access options identified, and asked the project team to address how these issues will be resolved.
• Another BPAC member noted that, during large events, there is not only vehicle traffic but also heavy pedestrian traffic. While the idea of a new station is appealing, the member emphasized that there are already two existing stations that were paid for and remain in use. The member asked how connections to those existing stations are being addressed—particularly for pedestrians—so that if one station is crowded, people can safely access the others. The member stressed the importance of ensuring safe pedestrian connections across newly widened roads in addition to addressing vehicle traffic to and from the airport. The member suggested that the project team consider installing pedestrian refuge islands, noting that there are a large number of lanes to cross.
• Another BPAC member expressed concern about the potential impact of northbound traffic on these streets, particularly West 150th, given its residential environment.
• Another BPAC member asked if the project team had determined the parking deficit at the stadium.

Safety and Operations Council (SOC):

• A member of the SOC clarified that GCRTA’s official position is that the distance from the Brookpark Station to the football site is 3,000 feet, similar to the walking distance from Tower City to the existing stadium. While GCRTA may collaborate if others wish to explore alternatives, it will not fund the project, and he stressed that this is not a GCRTA project.
• Another SOC member acknowledged the focus on game-day and event-day experiences but emphasized that project designers should also consider the everyday needs of Brook Park residents near the stadium. The member noted that residents may need to walk, bike, or drive in the area and cautioned against prioritizing event traffic for 30,000 fans over the daily needs of the community.
• The SOC member further stressed the importance of conducting a sidewalk inventory, ensuring sidewalks are adequately wide and continuous, and addressing challenges such as crossing the seven-lane Snow Road. The member suggested incorporating pedestrian refuge islands and other traffic-calming measures to improve safety and accessibility on non-game days as well.

Transportation Subcommittee:  

• Recommended for Planning and Programming Committee review with the condition to include the results of the traffic analysis by ODOT and NOACA.
• At its December 19, 2025, the Transportation Subcommittee recommended the proposed project for Planning and Programming Committee review.

Planning and Programming Committee:

• Recommended the project be recommitted to the Transportation Subcommittee to further review the additional results of the traffic analysis and continue work on the analysis of the review of the traffic analysis.

Executive Committee:

Intergovernmental Review and Consultation (IGRC):

Cuyahoga County Executive:

• How is area traffic impacted by mega event traffic associated with the stadium? What are the impacts on the Cleveland airport? What are the impacts on Southwest General’s Emergency Room located on Bagley Road?
• How do the infrastructure elements included in the project mitigate traffic impacts?
• Will mega events require event day traffic management? Which entity will provide that?
• Is the project considering multimodal transportation users? If so, are infrastructure upgrades required to RTA facilities? Are those included in this project?
• Outside of NOACA meetings, what opportunities has the public had to engage with the project?
• How do we know that this project includes the right improvements? If the project is to receive public money, they need to help remedy the problems created for everyone else.
• A number of these concerns will likely be addressed with further progress on the traffic studies (feasibility & the interchange modification study – currently being reviewed by ODOT and NOACA).
• Without clear answers to these questions, how can the Board weigh in on alignment with NOACA’s mission?
• Recommend additional input from advisory councils and transportation committee (once there is more detail about traffic impacts) before advancing to Executive Committee and Board of Directors for review.

City of Brook Park:

1. The impact to the traveling public and airport operations associated with the proximity of the site to the Cleveland Hopkins International Airport:

The Traffic Impact Study examined the proposed site access drives along Snow Road & Engle Road and demonstrates that the proposed improvements provide sufficient capacity to handle both the existing typical weekday traffic volume and the new typical weekday traffic volume generated by the development.  

2. The impact on local traffic to critical destinations near the site, including Southwest General Health Center’s Emergency Room in Middleburg Heights:

The proposed development will include residential, office, retail, entertainment, and hotel spaces. Daily traffic is expected to primarily utilize the Snow Road interchange as the main ingress/egress to the interstate, however, some of the daily traffic will also utilize the local roadway system.  

NOACA is modeling event-day traffic conditions to determine the effect of major event traffic volumes on regional assets including Cleveland Hopkins International Airport, Southwest General Hospital, and the surrounding roadway/highway network. The project design team is collaborating with NOACA staff in developing event-day traffic management plans to mitigate anticipated traffic congestion sites.  

3. The impact on commuters on the I-71 & I-480 corridors during major events, as well as the impact on residents commuting on local nearby roads during the peak congestion hours caused by major events:

Most events will not occur on typical weekdays during the hours of normal peak traffic volume. Events that occur on weeknights are typically scheduled after the peak traffic volume hours. Some event attendees may arrive at the event early resulting in some overlap between daily commuter traffic and event traffic. Proposed improvements include widening the I-71 northbound exit ramp with a second left turn lane and constructing a new flyover ramp from the I-71 southbound exit ramp. These will both improve the level of service over the ‘no-build’ configuration.

NOACA is modeling event-day traffic conditions to determine the effect of major event traffic volumes on regional assets including Cleveland Hopkins International Airport, Southwest General Hospital, and the surrounding roadway/highway network. The project design team is collaborating with NOACA staff in developing event-day traffic management plans to mitigate anticipated traffic congestion sites.

4. The selection of pre-determined infrastructure solutions without an assessment of a range of potentially less costly or more comprehensive options:

None of the proposed infrastructure improvements were pre-determined. All proposed improvements began with the baseline consideration of using the existing roadway infrastructure with no modifications or additional costs. The existing roadway network, however, consists of several one-way roads, turn-arounds, highly skewed intersections, an at-grade railroad crossing, and a generally confusing local roadway network. These anticipated traffic challenges and safety concerns served as the impetus for the proposed improvements to resolve each issue.

Roundabouts were initially considered for access to the development site at the primary access points. Routine daily traffic accessing the development could be safely maintained with roundabouts, however, the traffic level of service and throughout would quickly fail during major events, and the roundabout infrastructure would provide no alternatives to facilitate event traffic with event-day traffic management plans.  

The design team identified the existing at-grade railroad crossing as a major safety concern during the early conceptual design. The existing at-grade crossing would suffice for future typical weekday traffic volumes but do not provide sufficient queuing lengths or safety assurances for access to major events. This issue led to the proposed fly-over ramp and reconfiguration of the Snow/Engle intersection. Further, the City of Brook Park continually stressed the goal of ensuring that all construction occurs within the existing public right-of-way and access is maintained for all adjacent property owners.

The proposed improvements are designed to meet the transportation needs of the multi-use development accessing the site, while maintaining access for all existing road-users and property owners. These improvements include signalization of several intersections, lane reconfigurations, and simplified traffic routes throughout the area.

Demonstrate an alternatives evaluation process:

See response to question #4 above. The design team also briefly considered direct-access ramps from I-480 and I-71 to the development site. Simple sketches on aerial maps quickly demonstrated that direct access was not feasible without extensive acquisition of private property. Therefore, the direct access ramp option was quickly abandoned.

A public agency review of the ‘Level of Service’ analysis is critical:

Both ODOT and NOACA are currently reviewing the required traffic studies and ‘Level of Service’ analyses. NOACA is also modeling event-day traffic conditions to determine the effect of major event traffic volumes on regional assets including Cleveland Hopkins International Airport, Southwest General Hospital, and the surrounding roadway/highway network.

Public Involvement: