City of Estacada Transportation System Plan Estacada, Oregon Prepared For: City of Estacada 375 Main Street Estacada, OR 97023 Prepared By: Kittelson & Associates, Inc. 61 0 SW Alder, Suite 700 Portland, OR 97205 (503) 228-5230 May 1999 Project No. 241 7 Peter Koonce Acknowledgements Greg Ellis, City Manager Kittelson & Associates, Inc. Traffic EngineeringlTransportation Planning Consultant Julia Kuhn, P.E. Phill Worth City of Estacada Staff Bill Strawn, Public Works Director Management Team Oregon Department of Transportation Clackamas County Department of Land Consenration and Development Mohammed Fattahi, Clackamas County Lee Gunderson, ODOT District Thomas Picco, 0D.OT Region 1 Meg Ferneckees, DLCD i A Tom Nelson -? 1 - j Citizens Advisory Committee (Streets Committee) City of Estacada Residents Michael Park Bev Veley May 7 999 City of Estacada Draft Transportation System Plan Table of Contents Table of Contents INTRODUCTION ........................................................................................................................................................... 2 STUDY ......................................................................................................................................................................... 3 PUBLIC AND STUDY ............................................................................................................................. 3 TSP STUDY .............................................................................................................................................................. 6 EXISTING CONDITIONS .................................................................................................................................................. 8 LAND USE ............................................................................................................................................................................... 8 TRANSPORTATION .............................................................................................................................................. 8 ........................................................................................................................................................ ............................................................................................................................................................. Public Transportation System ..................................................................................................................................... I0 ................................................................................................................................. I0 ........................................................................................................................................... I2 .................................................................................................................................... I2 Pipeline and Transmission System .............................................................................................................................. I2 .................................................................................................................................................................... I2 .................................................................................................................................... I4 ........................................................................................................................................... I7 ................................................................................................................................................... I7 ............................................................................................................................................... I7 ............................................................................................................................................................. ................................................................................................................................................ CONCLUSIONS 23 FUTURE CONDITIONS ANALYSIS .............................................................................................................................. 25 TRANSPORTATI~N .................................................................................................................................................. 25 .................................................................................................................................................. 25 Housing ....................................................................................................................................................................... 26 ............................................................................................................................................... 26 .......................................................................................................... 26 ............................................................................................................................... 26 ...................................................................................................................................................................... 31 ............................................................................................................................. 31 Future Conditionsfor Pedestrian. Bicycle. and Transit Modes .................................................................................. 31 ................................................................................................................... 34 ............................................................................................................................................. IDENTIFICATION OF DEFICIENCIES 36 ................................................................................................................................................ 36 Bicycle Circulation ...................................................................................................................................................... 36 Public Transit .............................................................................................................................................................. SUMMARY 37 ALTERNATIVES ANALYSIS .......................................................................................................................................... 39 INTRODUCTION ................................................................................................................................................................. 39 ................................................................................................................................ 39 .......................................................................................................... 39 .............................................................................................................. 40 .................................................................................................................................... 40 .................................................................................................................................... 40 ................................................................................................................................ 40 Highway 2 I I-224/River Mill Road Intersection ......................................................................................................... 40 ..................................................................................................................... ...................................................................................................... ROADWAY IMPROVEMENTS .......................................................................................................................... Kittelson & Associates. lnc . ii May 7 999 City of Estacada Draft Transportation System Plan Table of Contents OTHER DEFICIENCIES 52 .................................................................................................................................................... j2 ........................................................................................................................................................... ......................................................................................................................................................... 5: POLICY ALTERNATIVES EVALUATION 53 Reduce Vehicular Reliance through Zoning and Development Code Revisions ......................................................... j3 Continued Access Management Along Highwq 21 1-224 .......................................................................................... 54 ...................................................................................... 54 Improved Transit Service to Reduce Reliance on the Automobile .............................................................................. SUMMARY 55 TRANSPORTATION SYSTEM PLAN ........................................................................................................................ 57 ROADWAY PLAN 57 .................................................................................................. 57 Roadwq Design Standards ........................................................................................................................................ 58 ....................................................................................................................... ...................................................................................................................... 62 ............................................................................................................................................. PEDESTRIAN PLAN ................................................................................................................................................... 63 Multi-Use Facilities ..................................................................................................................................................... Other Pedestrian Amenities ......................................................................................................................................... 64 BICYCLE PLAN ...................................................................................................................................................................... 69 PUBLIC SYSTEM .............................................................................................................................. 69 Background ................................................................................................................................................................. 69 ......................................................................................................................... 71 RAIL SYSTEM ............................................................................................................................................................... 71 ....................................................................................................................................................... 71 AIR TRANSPORTATION PLAN ................................................................................................................................... 71 PIPELINE PLAN 72 IMPLEMENTATION PLAN 73 SUMMARY TRANSPORTATION ................................................................................... ......................... 73 SUMMARY 75 ......................................................................................................................... 77 INTRODUCTION 77 CIW OF ESTACADA HISTORY 77 OREGON FUNDING .................................................................................................................. 78 ................................................................................................................................................ ........................................................................................................................................................... 80 POTENTIAL FUNDING ............................................................................................................. 80 POTENTIAL SOURCES 80 LAND USE ORDINANCE MODIFICATIONS ............................................................................................................. 83 MODIFICATIONS THE EXISTING ................................................................................................................... 83 ........................................................................................................................................... ......................................................................................................................... 83 .................................................................................................................................................. 84 Block Length ............................................................................................................................................................... ................................................................................................................................................. ACCESS UANAGEMENT AND DEVELOPMENT REVIEW ORDINANCE ............................................................. 85 TRANSPORTATION PLANNING RULE COMPLIANCE ...................................................................................... 91 REFERENCES ................................................................................................................................................................ 97 .- .. Kittelson & Associates, lnc . May 1999 City of Estacada Draft Transportation System Plan Table of Contents FIGURE FIGURE FIGURE FIGURE FIGURE 5 FIGURE 6 -1 FIGURE - FIGURE 8 FIGURE 9 List Of Figures STUDY MAP PEDESTRIAN EXISTING ROUTES EXISTING CLASSIFICATION AVERAGE DAILY TRAFFIC EXISTING CONFIGURATION TRAFFIC HOURLY PROFILES CITY STREET SYSTEM EXISTING VOLUMES LEVEL OF SERVICE PM PEAK HOUR HISTORICAL TRAFFIC TRENDS HIGHWAY (ODOT NO. 17 1) FIGURE 10 HISTORICAL VOLUME HIGHWAY 1 1 (ODOT NO. 16 1) FIGURE 1 1 20 19 FUTURE CONDITIONS FORECAST TRENDING ANALYSIS - 2.5% GROWTH FIGURE 12 IDENTIFIED DEVELOPMENT FIGURE 13 20 19 FUTURE ADT FORECAST ASSIGNMENT FIGURE 14 20 19 HAND ASSIGNMENT - WEEKDAY PEAK HOUR LEVEL SERVICE FIGURE CONCEPTUAL - REGAN HILL/SHAFFORD/~~ INTERSECTION FIGURE 16 CONCEPTUAL - NE 6M AVENUE/SHAFFORD STREET INTERSECTION FIGURE 17 CONCEPTUAL "A"- HIGHWAY 2 1 1 -HIGHWAY INTERSECTION FIGURE 18 CONCEPTUAL "B" - HIGHWAY 1 1-224 INTERSECTION ROUNDABOUT FIGURE 19 ONE-WAY PLAN - DOWNTOWN FIGURE PROPOSED PROJECTS FIGURE 2 1 FUNCTIONAL PLAN FIGURE ROADWAY STANDARDS FIGURE PEDESTI~AN PLAN FIGURE 24 DESIGN STANDARD MULTI-USE FIGURE 25 PEDESTRIAN FOR COMMERCIAL FIGURE MEDIAN TREATMENTS PEDESTRIANS FIGURE BICYCLE SYSTEM List Of Tables CLACKAMAS FUNCTIONAL CLASSIFICATION ..................................................... .............. . 13 PAVEMENT CATEGORIES 14 STUDY ACCIDENT ........................................................................................................... 22 TRAFFIC SIGNAL ANALYSIS 36 MINIMUM SPACING ........................................................................................... 62 PRIVATE DRIVEWAY STANDARDS .......................................................................................... 63 SUMMARY IMPROVEMENT ............................................................................................................ 74 SOURCES cm STREET FUND FISCAL YEAR 1998- 1999 ......................................................... ............ 77 Kittelson & Associates, lnc. iv Section 1 - Introduction May 7 QQQ In troduction Cily of Estacada Draft Transportation System Plan Section 7 Introduction The City of Estacada, in conjunction with Clackamas County and the Oregon Department of Transportation (ODOT), initiated a study of the City's transportation system in the summer of 1997. The purpose of this study is two-fold: to guide the management and development of transportation facilities; and to incorporate the vision of the community into a transportation system that addresses the multimodal needs of the community. The Estacada urban growth boundary (UGB) contains sufficient land to accommodate the growth projected to occur during the next 20-year period. Because there is an ample supply of land within the UGB, there is a potential for low-density development and inefficient development patterns, which could make it difficult to provide utilities and services cost-effectively and efficiently. How and where future development occurs will be important in terms of helping Estacada maintain its strong identity and character. Careful planning and development review will ensure accessibility to the downtown while maintaining access control and the mobility of the highway. State of Oregon guidelines stipulate that a transportation system plan (TSP) must be based on the current comprehensive plan land use map and must provide a transportation system that accommodates the expected 20-year growth in population and employment that will result from implementation of the land use plan. Oregon Revised Statute 197.7 12 and the Land Conservation and Development Commission (LCDC) administrative rule known as the Transportation Planning Rule' (TPR) require that all jurisdictions develop the following: a road plan for a network of arterial and collector streets; a public transit plan; a bicycle and pedestrian plan; an air, rail, water, and pipeline plan; m a transportation finance plan; and, 0 policies and ordinances for implementing the transportation system plan. The TPR requires that alternative travel modes be given equal consideration and that reasonable effort be applied to the development and enhancement of the alternative modes in providing the future transportation system. In addition, the TPR requires that local jurisdictions adopt land use and subdivision ordinance amendments to protect transportation facilities and to provide bicycle facilities between residential, commercial, and employment/institutional areas. It is further stipulated that local communities coordinate their respective plans with county and state transportation plans. This study was prepared as part of a Transportation Growth Management Grant. Although the population of Estacada does not meet the threshold level identified by State of Oregon legislation requiring local jurisdictions to prepare a transportation system plan (TSP), the report is formatted to provide the necessary elements for the City of Estacada to be in compliance in the future. In addition, this document provides Clackamas County and ODOT with recommendations for incorporation into their respective plans. Kittelson & Associates, lnc. 2 May 1999 In troductton City of Estacada Draft Transportation System Plan Section 7 STUDY AREA The City of Estacada is located along Highway 21 1-224 in Clackamas County, Oregon, as shown i~ Figure 1. The city, which is bordered by the Clackamas River to the south, is home to an estimated population of 2,100 persons (1 997 estimate). Incorporated in 1957, the city's economy was once primarily based on the timber industry, but recent trends have forced Estacada towards diversity, improving the future outlook of the community. Throughout the past 30 years, the downtown area has remained the heart of the community with a robust mix of commercial, residential, and public land uses. The majority of commercial land uses within Estacada are located within the central business district north of Highway 21 1-224. Over the past few years, commercial development has included the redevelopment of existing buildings in the central business district. The City has recently rezoned a 200- acre parcel west of Highway 2 1 1-224 to attract additional employment to the area. Residential land uses are located throughout the city, with farmland located along the city's northern periphery. The City has an ample supply of vacant, developable residential land within the urban growth boundary. PUBLIC INVOLVEMENT AND STUDY GOALS The TSP planning process provided the citizens of Estacada with the opportunity to identify their priorities for future growth and development. Expressing their vision for the future in terms of goals and objectives for the TSP was a central element of the public involvement process. The goals and objectives identified by the community served as guidelines for developing and evaluating alternatives, selecting a preferred trahsportation plan, and prioritizing improvements. Two committees were formed to guide the planning process: the Management Team and the Study Advisory Committee (SAC). The Management Team was comprised of representatives of the City of Estacada, Clackamas County, ODOT, and the consultant team. The Study Advisory Committee includes the members of the Streets Committee and key stakeholders in the community. The two committees convened at several key junctures of the project including: project inception, completion of the existing conditions analysis, presentation of the future conditions and alternatives analysis findings, and presentation of the draft and final TSP. Through these meetings, the local transportation planning process evolved such that a general consensus was achieved and maintained among all parties in attendance. Based on a review of the city documentation related to transportation and land use planning and discussions with the TSP committees, a series of project goals and objectives evolved that provided direction to the planning process. These goals and objectives are summarized on the next few pages. Kittelson & Associates, lnc. 3 OREGON i FIOURE 1 STUDY AREA MAP Estacada Transportation System Plan May 1999 Introduction City of Estacada Draft Transportation System Plan Section 7 Goal 1 : Promote a balanced, safe, and efficient transportation system. Objectives Develop a multi-modal transportation system that avoids reliance upon one form of transportation as well as minimizes energy consumption and air quality impacts. Protect the qualities of neighborhoods and the community. Provide for adequate street capacity and optimum efficiency. Promote adequate transportation linkages between residential, commercial, public, and industrial land uses. Goal 2 : Ensure the adequacy of the roadway network in terms of function, capacity, level of service, and safety. Objectives 1. Develop a functional classification system that addresses all roadways within the study area. 2. In conjunction with the functional classification system, identify corresponding street standards that recognize the unique attributes of the local area. 3. Identify existing and potential future capacity constraints and develop strategies to address those constraints, including potential intersection improvements, future roadway needs, and future street connections. 4. Evaluate the need for modifications to andlor the addition of traffic control devices. 5. Identify access spacing standards. 6. Provide an acceptable level of service at all intersections in the city, recognizing the rural character of the area. 7. Identify existing and potential future safety concerns as well as strategies to address those concerns. Goal 3 : Promote alternative modes of transportation. Objectives 1. Develop a comprehensive system of pedestrian and bicycle routes that link major activity centers within the study area. 2. Encourage the use of alternative modes of transportation by providing a system that insures mobility for all users. 3. Encourage the continued use of public transportation services and identify improvements to further promote transit in the community. Goal 4 Identify and prioritize transportation improvement needs in the City of Estacada, and identify a set of reliable funding sources that can be applied to these improvements. Objectives 1. Develop a prioritized list of transportation improvement needs in the study area. 2. Develop construction cost estimates for the identified projects. Kittelson & Associates, lnc. 5 May 1999 lntroduct~on City of Estacada Draft Transportation System Plan Section 7 3. Evaluate the adequacy of existing funding sources to serve projected improvement needs. 4. Evaluate new, innovative funding sources for transportation improvements. 5. Develop a transportation system development charge for the city to enhance current funding mechanisms. TSP STUDY PROCESS Development of the city of Estacada's Transportation System Plan began with an inventory of the existing transportation system. The inventory included documentation of all transportation-related facilities withln the study area and allowed for an objective assessment of the current system's physical characteristics, operational performance, safety, deficiencies, and general function. A description of the inventory process, as well as documentation of the existing conditions analyses and their implications, is presented in Section 2, Existing Conditions of this plan. The advisory committees provided significant input into this portion of the report because of their familiarity with the city and the transportation system. Upon completion of the existing conditions analysis, the focus of the project shifted to forecasting future travel demand and the corresponding long-term future transportation system needs. Development of long- term (year 201 9) transportation system forecasts relied heavily on population and employment growth projections for the study area and a review of historical traffic growth in the area. Through the City's Comprehensive Plan, reasonable assumptions were drawn as to the potential for and location of future development activities. Section 3, Future Conditions, details the analysis of a future travel demand scenario, identifying system needs within the city. Section 4 of this report, Alternatives Analysis, identifies a series of transportation system alternatives that are intended to mitigate transportation system deficiencies and provide a system that accommodates growth within the community. The impact of each of the identified alternatives was considered on the basis of individual merits, conformance with the existing land use and transportation system, as well as potential conflicts to implementation and integration with the surrounding transportation system. Based on the alternatives developed, a preferred plan was developed that reflects a consensus as to which elements are to be incorporated into the city's long-term transportation system. These recommendations are summarized in Section 5, Transportation System Plan, and presented by mode as the following: Roadway Network and Functional Classification Plan, Pedestrian System Plan, Bicycle System Plan, Public Transportation Plan, and RailIAirPipeline Plan. Section 6, Funding Alternatives Analysis, provides an analysis and summary of the alternative funding sources available to finance the identified transportation system improvements. In an effort to enhance the existing comprehensive plan and policies and ensure compliance with the TPR, several comprehensive plan and zoning ordinance modifications have been developed. The recommended language is presented in Section 7, Policies and Land Use Ordinance ModiJications, and addresses major land use and transportation issues identified through development of the TSP and reflects the desire to enhance all modes of the transportation system. Finally, Section 8, Transportation Planning Rule Compliance, lists the requirements and recommendations of the Oregon Transportation Planning Rule (OAR 660 Division 12) and identifies how the City of Estacada TSP satisfies that criterion. Kittelson & Associates, lnc. 6 Section 2 Existing Conditions May 1999 City of Estacada Draft Transportation System Plan Exlsting Conditions Section 2 Existing Conditions The development of this transportation system plan began with an assessment of the existing transportation system and land use conditions. This section describes the existing conditions for all transportation modes that the transportation system plan addresses including roads, bicycles, pedestrians, transit, air, and marine facilities. The purpose of this section is to provide an inventory and description of existing facilities while setting the stage for a basis of comparison to future conditions. LAND USE The existing heart of the city is within the central business district and the commercial buildings of the downtown. The dense grid of development north of Highway 2 1 1-224, is far the most part, compact and walkable. The streets are laid out as an interconnected network forming blocks that provide for adequate circulation for vehicles and pedestrians. The mix of land uses throughout the grid system occur in relatively close proximity and provide access to a wide variety of activities for the citizens. The building entrances front the street rather than parking lots providing a streetscape that is well-defined for pedestrians and vehicles alike. TRANSPORTATION FACILITIES A detailed assessment of the existing transportation system was conducted at the onset of the project. This assessment included an inventory of the existing transportation facilities and services, a summary of existing transportation operations in the urban area, and an evaluation of the existing safety conditions. A summary of the inventory of each mode of travel is described below. Pedestrian System Figure 2 identifies the location of the existing sidewalks within the city. As shown in Figure 2, the existing sidewalk system is extensive, although several critical links are missing. Sidewalks are provided in the downtown core and along Broadway and Main Street. Intermittent sidewalks are provided in most residential areas. In order to evaluate the adequacy of the pedestrian system and sidewalk network, an inventory was conducted of existing connections between the pedestrian generators and the arterial- and collector-level roadways. Pedestrian generators were defined to be existing facilities that typically attract high levels of pedestrian activity on a regular basis. Typical generators include: schools, churches, parks, open spaces, shopping centers, cemeteries, libraries, community centers, government offices, museums, historical landmarks, and urban downtown core districts. Ideally, at least one sidewalk connection should be provided between each of these generators and the existing arterial- and collector-level roadways, in order to enhance the safety and attractiveness of pedestrian and bicycle travel throughout the city. Based on the field survey, adequate sidewalk connections are currently unavailable on the arterial and collector street system at the following generators: Lakeshore Drive park/picnic area brivateiy maintained); Estacada Timber Park; Milo McIver State Park; IOOF Cemetery; and, Estacada High School, Junior High, Grade School and Rivermill School (especially for residents east of Pierce Street). A developed path exists along the Clackamas River. This multi-use path follows the abandoned Oregon Electric Railroad right-of-way and is approximately eight feet wide. This path links Timber Park with downtown and runs northwest of town, adjacent to Highway 224. Kittelson & Associates, Inc. 8 May 1999 Existing Conditions City of Estacada Draft Transportation System Plan Section 2 Bicycle System The City of Estacada does not currently offer designated on-street bicycle facilities. The city has completed construction of a multi-use path as a part of their Parks, Open Spaces, and Recreation Master plan2. In order to evaluate the adequacy of the street system to accommodate bicycle traffic, the inventory of the existing street system was used to analyze the traffic conditions surrounding areas where bicycle traffic is likely. Bicycle generators were defined to be places that typically attract high levels of activity. Generators considered within the City of Estacada include the schools, parks, the City Library, and the downtown. Based on the field survey, adequate connections for bicyclists are currently unavailable on several streets within the city. As traffic volume on the streets increase, bicycle lanes may be warranted to maintain the safety of cyclists. Allowing bicycle traffic to mix with automobile traffic is acceptable where speeds are low and traffic volumes are below 3,000 vehicles per day3. On many streets in Estacada, however, traffic speeds are low enough that cycling is safe even though the traffic volume exceeds this threshold. Public Transportation System The backbone of the City of Estacada's public transportation system is the intra-city bus network that connects Estacada with the Portland metropolitan area. Tri-Met, the primary transit provider for the Portland metropolitan area, provides service between Estacada and Portland via Route 3 1. Route 3 1, Estacada, provides bus service between Estacada and downtown Portland via the Carver Community Center, the Clackamas Town Center, and the Milwaukie Transit Center during the weekday a.m. and p.m. peak hours at 25-60 minute headways. Average travel times from the Highway 224Nain Street stop include: 42 minutes to the Clackamas Town Center, 58 minutes to the Milwaukie Transit Center, and 84 minutes to downtown. During the midday and on Saturdays, direct transit service via Route 3 1, is only provided between Estacada and the Milwaukie Transit Center. No transit service is available on Sunday.4 Figure 3 shows the existing Tri-Met bus route and bus stop locations. Also shown in Figure 3, are the existing school bus routes. The Estacada Community Center also provides service to the transportation-disadvantaged in Estacada, Eagle Creek, and Barton. The Center operates one 14-passenger van, five days a week, on a demand- responsive basis. Railroad Transportation System There are no passenger or freight rail lines located within the Estacada UGB. According to the Comprehensive Plan, Portland Traction operated a rail line within the city, but the track has been vacated and is tentatively planned for use as a bicycle path. Industrial users in Estacada ship freight via truck on either Highway 224 to the Oregon Pacific rail line outside of Molalla or via Highway 21 1 to the Union Pacific terminals in Portland. Passenger rail service is provided via Union Station in downtown Portland, approximately 25 miles to the northwest of Estacada. Residents of Estacada are able to access Union Station via private automobile, taxi, and Tri-Met. No evidence was offered by the Committee or members of the community norfound by the study team to indicate that rail service to Estacada was inadequate. Kittelson & Associates, lnc. 10 FIQURE EXlSTlNQ TRANSIT ROU Estacada f ransportation System Plan May 7999 Existing Conditions City of Estacada Draft Transportation System Plan Section 2 Air Transportation System Estacada has a privately operated airport used primarily for recreational trip-making. The airport is protected under ORS 836.600 and is to be protected under the private-public airport heading. The airport was last inspected in September 1995 by State of Oregon Aeronautical personnel. Passenger and freight air service is available at the Portland International Airport (PDX). In 1996, PDX served nearly 12,600,000 passengers and 240,000 tons of air cargo. Estacada residents can travel to PDX via private auto, taxi, or Tri-Met. The existing air transportation system is considered adequate for the City of Estacada. Marine Transportation System There are no waterways within the UGB that are used for commercial transportation. The Clackamas River is used for recreational purposes only. ., + Pipeline and Transmission System - There are no major pipelines that cross the Estacada UGB. Portland General Electric does operate one set of high-voltage power transmission lines through Estacada. The RiverMill and Farraday Dam lines enter Estacada along Highway 2 1 1 and into a substation at the southeast comer of the Highway 2 1 1- 224lBroadway intersection. Easements protect this transmission line and sufficient power is provided via this line to adequately serve the Estacada area. I Roadways I Three jurisdictions are responsible for the transportation facilities in Estacada: the Oregon Department of ~rans~ortation, Clackamas County, and the city. The characteristics of the roadway system, summarized by jurisdictional responsibility, are presented below. ODOT Facilities Highway 22412 1 1 are state highways of District Level of Significance as per the Oregon Highway Plan 44 (1 991). According to the Oregon Highway Plan (OHP), the primary function of a District highway is to 7 *\ f \ ? + serve local traffic and to provide land access. In urbanlurbanizing areas, the management objective of a District highway is to allow for safe and efficient, moderate to low-speed operation with moderate to high level of interruptions to flow. District highways, such as 224 and 2 1 1, serve a similar function to county and city streets. According to the OHP, Highway 224121 1 is designated as a Category 5 access management facility. A Category 5 designation identifies a minimum spacing of 500 feet for public roadways, 150 feet for private 1 drives, and 114 mile for traffic signals. - North of the Estacada city limits, Highway 22412 1 1 is a two-lane roadway with a posted speed of 55 miles per hour. No bicycle lanes or sidewalks are provided along this section of the highway. At River Mill Road, the highway widens to a five-lane section and continues as such until the Highway 224lHighway 2 1 1 junction located southeast of downtown Estacada. Between River Mill Road and SW 2nd Avenue, the posted speed on the highway is 55 mph, decreasing to 40 mph south of SW 2nd Avenue and 35 mph south of Wade Street. Within the downtown area, sidewalks are provided along Highway 22412 1 1 only at City Hall; in addition, the shoulders are wide enough to accommodate bicycle traffic. - Highway 22412 1 1 provides Estacada residents with access to the Portland metropolitan area to the north and to recreational opportunities within the Mount Hood National Forest to the south. Access to the I highway within the UGB is limited primarily to public streets and some private driveways. Within - Kittelson & Associates, lnc. 12 May 7999 City of Estacada Draft Transpoltation System Plan Extstmg Condittons Section 2 For example, a street may function as an arterial within the city, but may only function as a local street when evaluating the overall county transportation system. As part of the recommendations of the TSP, the roadway classification for each street within the city was reviewed and a new set of street standards and classifications are proposed. Figure 4 shows the classification of each of the roadway facilities within the UGB. The 1998 average daily traffic volumes on the collector/arterial street system in Estacada are shown in Figure 5. Existing Pavement Conditions The City of Estacada has jurisdiction over most of the streets within the Urban Growth Boundary. The existing paved streets vary in condition and there are a limited number of unpaved gravel surface within the City. An evaluation of the pavement conditions included basic observations of the street surface conditions and input from the advisory committees. The city does not have a pavement management system in place that actively identifies roads in poor condition. A Pavement Condition Category System can be used to determine the maintenance needs of the existing system. Management systems are valuable tools for capital costs planning and to determine long-term needs. Both ODOT and Clackamas County use pavement management systems to determine needs of the roadway network. An evaluation of the ODOT and Clackamas County systems identified potential systems the city could use. Discussions with the Management Team indicated that a simple pavement management system, that is easily understandable is preferred and thus, the Clackamas County system is proposed to assess pavement conditions. Table 2 describes the pavement conditions categories survey used by Clackamas County on County roadways. Good Table 2 Pavement Condition Categories5 Category Excellent Pavement structure is stable, but may have surface erosion or minor cracking, minor patching, and possibly, some minor deformation. Riding qualities are very good. The pavement has a dry or light colored appearance. Some type of rejuvenation of the wearing surface is all that is required. Pavement structure is generally stable with minor areas of structural weakness evident. Cracking is easier to detect. The pavement may be patched but not excessiveiy. Although riding qualities are good, deformation is more pronounced and easily noticed. I Poor PQI 8-1 0 Fair -- Roadway has areas of instability, marked evidence of structural deficiency, areas of alligatoring, heavy and numerous patches, and very noticeable deformation. Riding qualities range from acceptable to poor. Spot repair of the pavement base may be required. Condition Pavement structure is stable, with no cracking, no patching and no deformation evident. Roadways in this category are usually fairly new. Riding qualities are excellent. Nothing wouid improve the roadway at this time. 4-6 -- Very Poor I 0-2 1 Costs of saving the pavement structural section would equal or exceed Clackamas County conducts a qualitative survey of pavement conditions on a yearly basis for arterials and collectors. Local streets are surveyed on a two to three year cycle. The acceptable standard for arterials and collectors is an average Pavement Quality Index (PQI) of 6.0. On local streets an acceptable standard is an average PQI of 5.0. Kittelson & Associates, lnc. FIGURE 4 I iwrags Daily Traffic (WD) 0- 2080 2801 -4080 4001 -6000 6001-8000 ---a=22- -- 8001-10000 No Data FIGURE 6 AVERAQE DAILY TRAFFIC VOLUMES Estacada Tramportation System Plan viay .YYY cA,h~~rlG -~r b,,,dr,a City of Estacada Draft Transportat~on System Plan Sect~on It is recommended that the city implements the pavement management system described above to improve the existing conditions of pavement and begin implementation of preservation rather than continued short-term maintenance. Existing Traffic Control Traffic control takes many forms including turn restrictions, traffk signals, stop signs, and others. These traffic control devices are intended to improve the safety of the system. Within the Estacada UGB, only the BroadwayEIighway 224 intersection is signalized. All-way stop-controlled intersections are located at: NE 6th AvenueiMain Street, SE 3rd AvenueBroadway, and SE 4th AvenueBroadway. All of the approaches, with the exception of the northbound movement at the BroadwayNE 1 st Avenue intersection are stop-controlled. Sight distance constraints dictate the need for the stop-control at this intersection and the need to prohlbit southbound left turns. The ShaffordRegan HilVSE 4th Avenue intersection operates similarly, the eastbound approach is uncontrolled and the other approaches are stop-controlled. All of the remaining intersections are stop-controlled on the minor street approaches. lntersection Analysis The Estacada TSP Management Team identified several intersections within the UGB that needed to be evaluated from either a safety, capacity, or geometric standpoint. The intersections identified include: Highway 224lSW 2nd Avenue Highway 224lBroadway Street Highway 224iMain Street Highway 224lHighway 2 1 1 Highway 224lRiver Mill Road Highway 224Lndustrial Way Highway 224lWade Street Duus Roamagle Creek Road SE 4th AvenueIShafford Street NE 1 st AvenueBroadway Street NE 2nd AvenueiMain Street NE 6th AvenueEagle CreeWWade NE 6th AvenueBroadway Street NE 6th AvenueIMain Street NE 6th AvenueIShafford Street Coupland RoadCemetery Road River Mill Roamagle Creek Road 4th AvenueIWade Street Highway 2 1 1 /River Lake Road An analysis of the safety, operations, and geometric design of each of the intersections is discussed below. The existing traffic control and lane geometries at each of the study area intersections is shown in Figure 6. lntersection Operations Extensive data were collected to establish the existing conditions for the City of Estacada. Road tube count equipment was placed in several locations throughout the city to determine traffic flow patterns and hourly demands on the system. Kittelson & Associates, lnc. 17 0 DUUS RD NORTH (NOT TO SCALE) , LEGEND - STOP SIGN @ - TRAFFIC SIGNAL 1 I EXISTING LANE CONFIGURATIONS AND TRAFFIC CONTROL DEVICES Estacada Transportation System Plan 2417\DVGS\FINAL\2417FL06.DVI May 7999 Extsting Condttlons Ctty of Estacada Draft Transportat~on Plan Sectton 2 Conversations with the Estacada TSP Management Team indicated that the afternoon school peak may have volumes as high or higher than the p.m. peak hour. For this reason, the p.m. peak hour counts were supplemented with hourly profiles of the daily traffic patterns on NE 6th Avenue, Main Street, and Broadway in the vicinity of the schools. The hourly traffic profiles on the streets within the vicinity of the schools are shown in Figure 7. As shown in Figure 7, the volumes during the school peak are approximately 80-90 percent of the weekday p.m. peak hour volumes. For this reason, traffic volumes during the weekday p.m. peak hour were used in the analysis of all study area intersections. Typically, travel patterns during the weekday p.m. peak hour include commuting, shopping, and recreational trips and, therefore, produce higher traffic volumes than any other period of the day or week. Therefore, analysis of system operations during this time period is likely to consider the worst-case condition. An operational analysis was conducted at each of the study area intersections using the weekday p.m. peak hour volumes shown in Figure 8. All level-of-service (LOS) analyses were conducted in accordance with the 1994 Highway Capacity Manual (HCM), published by the Transportation Research Board. A detailed description of this methodology and the thresholds used to establish each LOS grade for both signalized and unsignalized intersections is included in Appendix B. Figure 8 shows the delay and volume-to-capacity ratio for each of the study intersections. As shown in Figure 8, all study area intersections operate at level-of-service "Dm or better during the weekday p.m. peak hour. In addition, no modifications to the existing traffic control at any of the intersections is needed from a capacity standpoint. Traffic signal warrants were conducted for the intersections with a higher volume intensity and based on the existing data, a traffic signal is not warranted at any of the unsignalized intersections. Future Use of riaffic Control Devices Traffic control devices are used to direct and assist vehicle operators in the guidance and navigation tasks required to traverse safely any facility open to public travel. To be effective, a traffic control device should fulfill a need, convey a clear and simple meaning, command respect of mad users, and give adequate time for proper response. As the city grows, residents of Estacada may question the placement of trac control devices. The placement of trafEc control requires careful consideration and uniform and consistent practice can reduce the city's liability. The are two primary concerns associated with the inappropriate placement of traffic control devices: 1. The placement of the traffic control devices represents a liability to the city if they are inappropriately used (Placement standards are identified in the Manual on Uniform Traffic Control Devices). 2. The inappropriate use of traffic control devices tends to result in disrespect for the device; potentially leading to driver complacency and future accidents (for which the city may then be liable). Consultation of a licensed professional traffic engineer is encouraged when the city is considering traffic control devices. Kittelson & Associates, lnc. 79 Hourty Tmc Volumes 6th Avenue Between Zobrllt Sma and Wade Stnst Hourly Tramc Volumes ~ourly Tmc Volumcr Maln Street Between 1st and 2nd Avenues ROAD RE FIGURE 7 HOURLY TRAFFIC PROFILES FOR CITY STREET SYSTEM Estacada Transportation System Plan NORTH (NOT TO SCALE) DUUS RD i Inmo NNN LEGEND CM = CRITICAL MOVEMENT (UNSIGNALIZED) LOS = INTERSECTION LEVEL OF SERVICE (SIGNALIZED)/ CRITICAL MOVEMENT LEVEL OF SERVICE (UNSIGNALIZED) Del = INTERSECTION AVERAGE DELAY (SIGNALIZED)/ CRITICAL MOVEMENT DELAY (UNSIGNALIZED) V/C = CRITICAL VOLUME-TO-CAPACITY RATIO FIGURE 8 1998 EXISTING TRAFFIC VOLUMES - WEEKDAY PM PEAK HOUR LEVEL OF SERVICE Estacada Transportation System Plan rviay i ~YY City of Estacada Draft Transportation System Plan cxistlng ~onoi:lons Section 2 Traffic Safety A summary of the reported accidents on Highway 224121 1 within the UGB and at each of the study area intersections was assembled from ODOT records. The ODOT database includes information about accident severity Cproperty damage only, injury, or fatality) and type (i.e., angle, head-on, rear-end, sideswipe, turning, fixed object, pedestrian, and other). Accident data described by a link level analysis is examined by determining the number of vehicles using the roadway and the rate at which accidents occur along the highway per mile traveled by the vehicles. Accident records for the 3-mile segment of Highway 224 within the urban growth boundary of Estacada were obtained from ODOT and examined for existing safety concerns. This data indicates that there were 21 reported accidents during the five-year period between 1993 and 1998 on this segment of Highway 224, with no fatalities. The reported number of accidents corresponds to an average annual accident rate of 0.51 accidents per million vehicle miles (MVM). This rate does not suggest a potential safety deficiency along this segment of the highway and the data does not suggest any apparent pattern among the reported accidents. Accident data is described at intersections by examining the rate at which accidents occur, normally based on the number of accidents per million entering vehicles (MEV), or vehicles entering the intersection. A summary of the accident history at the study area intersections is reported in Table 3. Kittelson & Associates, lnc. 22 Table 3 Intersection Highway 224/SW 2nd Avenue Highway 224Broadway Highway 224hnain Street Highway 224Highway 21 1 NE 1 st AvenueBroadway NE 2nd Avenuehnain Street NE 6th AvenueEagle CreeWade NE 6th AvenueBroadway Street NE 6th Avenue/Shafford Street Coupland Road/Cemetery Road River Mill RoadEagle Creek Road Highway 21 1 /River Lake Road Highway 2241Wade Street Highway 224/River Mill Road Duus RoadEagle Creek Road Highway 224/lndustrial Way SE 4th Avenue/Shafford Street NE 6th Avenuehnain Street Study Intersection Accident Rates Number of Accidents 1 2 5 8 2 1 1 2 1 1 1 1 1 2 2 0 0 0 Accidents/MEV 0.07 0.1 4 0.31 - 0.45 0.14 0.1 1 0.09 0.19 0.1 1 0.1 5 0.08 0.1 1 0.07 0.1 5 0.1 6 0.00 0.00 0.00 City of Estacada Draft Transporiatlon System Plan Section 2 It should be noted that there were no fatalities reported over the five-year period within the city. In addition, the accident rate at the study intersections does not exceed 0.5 accidents per million entering - vehicles (ACCMEV). An accident rate of greater than 1.0 accidents per million vehicles, for intersections in urbanizing areas, generally indicates that the accident history at an intersection should be examined ir . detail and potential mitigation measures investigated, if necessary. Finally, there were no apparent patterns among the accidents at any of the intersections that would suggest an inherent geometric deficiency. Geometric Evaluation A field survey of the Estacada transportation system revealed that there are several intersections needing modification to the current alignment or improvement to the sight distance available at the intersection to address geometric deficiencies. Although neither the safety nor the operational evaluation suggests an existing deficiency, the design of these intersections is less than ideal and the functional layout could be improved as part of future transportation system improvements in the city. Example locations with geometric deficiencies include: the offset intersection of River Lake RoadCadonau RoadIHighway 2 1 1 ; the intersection of Regan Hill Road4th AvenueIShafford Street; and, the available sight distance at the Shafford StreetNE 6th Avenue intersection. CONCLUSIONS The inventory and evaluation of the existing transportation system in Estacada revealed the following: additional pedestrian facilities are needed to connect existing residential areas with schools an? parks in the city; there are no on-street striped bicycle facilities within the city; no public air or rail facilities are available within the Estacada UGB; - adequate rail and air freight and passenger service is available through facilities in the City of Portland; limited but adequate transit service is provided by Tri-Met and through the community center; the city's existing functional classification system needs to be revised; there are no existing operational deficiencies at intersections within the city; no traffic control modifications are required at this time; some of the existing roadways are in poor condition (Main, Regan Hill Road, etc.); accident data did not reveal any apparent safety deficiencies at any of the study area intersections; and, three study intersections could benefit from geometric improvements to correct skewed alignments andlor sight distance limitations. Kittelson & Associates, lnc. 23 Section 3 Future Conditions Analysis ,v,uy , ;;.7 City of Estacada Draft Transportation System Plan section 3 Future Conditions Analysis This section presents an analysis of future conditions for the transportation system within the City of Estacada. The long-term future transportation needs for the city were examined based on employment and population forecasts, expected development activities, review of the proposed roadway network, results from the operational analysis of the existing street system, and extensive discussions with regional transportation personnel and local citizens. TRANSPORTATION DEMAND Future transportation demand within the City of Estacada urban growth boundary was estimated based on expected growth in the study area population, employment, and traffic traveling through the study area for the horizon year 201 9. The 20-year forecast planning horizon was chosen to ensure compliance with Oregon's Transportation Planning Rule and to provide a long term view of the performance of the transportation system. Traffic volume forecasts for the year 20 19 were used to determine future traffic conditions on the existing roadway network and where improvements are needed. The adequacy of the transportation system, with respect to all transportation modes (automobile, pedestrian, bicycle, transit, etc.) was considered in this analysis. Based on this analysis, a series of alternatives were analyzed to identify a list of future improvements that maintains and improves the existing system. Long-term future transportation needs for the City of Estacada were examined based on discussions with the advisory committees and review of the no-build roadway network, results from the operational analyses of the existing street system, and future travel demand forecasts. Future alternative mode plans were developed to ensure provision for pedestrians, bicyclists, and transit users. The alternative mode plans and roadway system alternatives were assessed for their effectiveness in adequateb serving demand and satisfying the study goals and objectives. Population Forecasts The population of Clackamas County increased from 166,088 in 1970 to 3 13,200 in 1996, an overall growth rate of approximately 88.6 percent over the past 26 years. This equated to an annual growth rate of approximately 2.5 percent. From 1990 to 1996, the population of Clackamas County grew from 278,850 to 3 13,200, an annual increase of approximately 2 percent. This growth rate is indicative of stable growth during the past six years. It is expected that the county will continue to grow at this pace. Because of its rural nature and distance from the City of Portland, the City of Estacada is experiencing a lower rate of growth than the remainder of the county. The population of the city has increased from 1,164 residents in 1970 to 2,065 in 1996. This translates into a 2.2 percent annual growth over the past 26 years. During the six-year period from 1990 to 1996, the population increased from 2,016 to 2,065, an annual increase of approximately 0.5 percent. Metro, in conjunction with the Center for Population Research and Census at Portland State University, provide population estimates for the region as well as the entire State of Oregon. The Metro growth allocation model forecast identifies an estimated annual growth rate of 2.5 percent during the next 20 years (1 994-20 15 forecast) for the city. The 20 15 forecast for population in Estacada was 3,6 14 residents. Using Metro's assumed annual growth rate and projecting from 201 5 to 201 9 increases the estimate to approximately 3,900 residents within the city limits. Kittelson & Associates, lnc. 25 -. --- Citv of Estacada Draft Transportatton System Plan Sect~on Housing Residential property and existing housing information can be used to estimate travel demand on the transportation system, thus it is important to review areas of growth within the city. Future development can be highly speculative in Estacada because the market tends to be rather volatile. The previous years have seen several proposals for housing subdivisions within the city limits, although only a small number of houses have actually been built. Several proposals during the previous year have raised citizen awareness of the traffic impacts of large developments. The average household size in Estacada is expected to change somewhat over the 20-year planning horizon. There were 2.7 persons per dwelling unit in 1990 in the Estacada area. This is slightly higher than the county average. It is likely that this average will remain higher than the County average due to growth of the city as a community dedicated to maintaining the quiet, rural lifestyle attractive to many families6. Assuming the population forecast is accurate and the average persons per dwelling unit remains relatively constant, an additional 570 houses will be needed in the next twenty years to accommodate the forecasted growth. Employment Forecasts The employment base in Estacada is estimated to grow from approximately 883 jobs in 1996 to 1,527 jobs by 2019. This represents an annual increase of 2.5 percent over the 20-year period. The growth in employment within Estacada is likely to occur as industrial and manufacturing jobs, largely due to the city's encouragement of those sectors. Additional growth is also planned for the retail sector, as outlined in the visioning process performed by the city in 1995. Changing Demand for Transportation Options There is a potential, as a smaller community develops, that it can become more self sufilcient and better able to serve the needs of its population. Under the right mix of land use and development, citizens are able to find the employment and services desired within the community, instead of having to travel to larger urban areas located nearby. The benefit to the transportation system is in he potential for some of these trips to be shorter or made via modes other than the automobile, thereby reducing overall demand on the roadway network. This benefit can be offset if large regional attractors locate in the city. Generating quantitative future travel demand estimates for alternative modes is a challenging task. Traditional methods (normally an extrapolation of existing data or trends) require a basis in substantial historical data. Such data are not readily available for the Estacada area. Therefore, a qualitative approach was taken in estimating future demand for non-auto traffic. Traffic Forecasting Methodology Forecasts of future traffic volumes followed the Level I Trending Forecast described in the ODOT's Transportation System Planning Guidelines7. A Level 1 Trending Forecast estimates future traffic volumes based on historical growth trends of vehicle traffic on the nearest state highway. The state highway is used because of the lack of additional data on the adjacent street system. Traffic volume data for Oregon Highway No. 171 (Clackamas, ORE 224) is presented in Figure 9. The proximity of this highway data to the city provides a good indication of traffic growth for the area. Review of Figure 9 shows that the annual growth rate was fairly consistent between 1979 and 1998. -- - - -- - K~ttelson & Assocmtes, lnc. 26 Highway 224 -Traffic Growth Trends ODOT No. 171 Highway 21 1- I Annual 0.4% I ~nnual V I I I I I I I I I 1979 1981 1983 1985 1987 1989 1992 1995 1996 Year 0 : Main Street FIQURE 9 HISTORICAL TRAFFIC VOLUME TRENDS HIGHWAY 224 (ODOT NO. 171) Estacada Transportation System Plan City of Estacada Draft Transportat~on System Plan Section 3 East of the city, traffic on ORE 224 has not increased significantly in the past 20 years. This is largely due to the type of traffic that uses ORE 224 east of Estacada. In previous years, during heavy timber production, a steady stream of traffic used the facility throughout the year. More recently, the traffic growth generated by the timber industry has slowed and recreational traffic has increased in the conidor The average daily traffic has experienced no measurable growth, remaining below 4,000 vehicles per day. West of the Highway 2 1 1-224 intersection, the average annual growth on ORE 2 1 1-224 in the city has been 1.9 percent. Traffic volume data for Oregon Highway No. 16 1 ( Woodburn-Estacada, ORE 2 1 1) is presented in Figure 10. The Highway 161 data (traffic south of the city) shows an average annual increase of 2.8 percent. A Level 1 Trending Forecast suggests the use of the growth rate determined from the highway data for traffic projection on the city street network. Based on the volume trends of the past twenty years, it was estimated that an annual growth rate of 2.5% could be used to estimate a reasonable forecast for future traffic volumes on the state highways and local streets. The 20 19 forecast for the street network, assuming the 2.5% growth rate, is shown in Figure 11. An evaluation of the forecast was completed to determine whether the trending analysis was adequate for the local street network. The traffic volume information presented in Figure 11 was compared to the transportation impact studies completed for the foIIowing proposed developments within the city limits: Estacada Industrial Area (200 acres of light industrial , west of Highway 224); Presidential Development (450 single-family units, northeast of the city); Whitesell Estates, (approximately 120 single-family units, east of the city); and - Cazadero Heights (approximately 60 single-family units, south of Regan Hill Road, east of the city). Review of the trip generation potential of proposed developments within the City of Estacada indicated that the trending forecast required additional modifications to provide a forecast that sufficiently describes future conditions. While the traffic volumes on the highway were considered adequate, the city street system forecasts did not reflect the areas of growth that have been proposed in the city. A hand assignment of traffic based on traditional transportation planning methods was used to revise the Level 1 Trending Forecast. The hand assignment forecast utilized the volume level on the highway from the Trending Forecast that was based on the 2.5% annual growth for highway traffic. Kittelson & Associates, Inc. Highway 211 -Traffic Growth Trends ODOT No. 161 I I , I I I I 1 1979 1981 1983 1985 1987 1989 1992 1995 1996 Year + South City Limits HISTORICAL TRAFFIC VOLUME TRENDS HIGHWAY 211 (ODOT NO. 161) IC) FUTURE ONDlTIONS AD% FORECAST ENDING ANALYSIS-2.5% GROWTH ransportation May 1999 Future Conaitions Anaiysis City of Estacada Draft Transportation System Plan Section 3 Hand assignment forecasts utilize traditional transportation planning procedures and information about land use, population, and employment to estimate traffic on a transportation network. In the hand assignment traffic forecast, the trip generation potential of prospective developments was calculated based on trip generation rates summarized in the Institute of Transportation Engineers (ITE) Trip Generation ~anual'. The traffic generated by new developments was added to a background traffic growth to account for increases in external trips (trips that don't have an origin or destination within the UGB) and growth within the city that is not addressed by the identified developments. To account for this citywide growth, a one percent annual growth rate was applied to the existing traffic volumes separately from the traffic assignment that was completed for the land parcels that were identified within the City of Estacada and shown in Figure 12. Figure 13 shows the traffic volume projections for the future year under this hand assignment. A review of the forecasts, particularly in the northeast section of the city, show that the refined estimates more accurately reflect future development proposed within the city limits. Summary Following a review of the trending analysis, it was found that the Level 1 Trending Forecast did not adequately describe future traffic conditions for the public street system. A refined hand assignment traffic forecast was developed to improve the forecasts for the public street system. There are two primary reasons for this additional level of detail. First, the land use assignment more adequately describes development of specific land parcels, providing site specific data for analysis. Second, a detailed traffic assignment of new trips onto the system adequately models growth areas and future needs in developing areas. One final benefit of the hand assignment forecast is the increased level of detail that can be provided for improvements. FUTURE NO-BUILD TRAFFIC OPERATIONS The analysis of no-build future conditions is based on the assumption that no additional transportation facilities other than those with already committed funding will be built. Currently, no future transportation projects are funded for street improvements in the City of Estacada. Future Conditions for Pedestrian, Bicycle, and Transit Modes Future demand for pedestrian and bicycle transportation was qualitatively estimated. Pedestrian trips are possibly the least quantifiable and the most difficult to predict. There are numerous trips made using nonmotorized modes in Estacada on a daily basis, yet there is also a great opportunity to increase the number of nonmotorized trips made within the city. The means to promote these modes lie in the provision of safe, convenient, and efficient facilities for the users. These facilities must be developed to serve users in an efficient manner. The number of direct connections provided to major activity generators measures efficiency of the system. Where possible, added connections should reduce the amount of out of direction travel for pedestrians and cyclists. The existing multi-use path system in Estacada should be expanded to improve the accessibility of the existing recreational resources within the city. The Parks and Open Space Master Plan also recommends improving regional linkages to the city, which would further reinforce the path system for recreational users. Future improvements should consider both pedestrians and cyclists as well as connections to transit. Another key ingredient in the encouragement of choices other than the automobile is the provision of amenities that offer users a more pleasing experience. Amenities for pedestrians can include wider sidewalks, sidewalk awnings to protect pedestrians from the elements, and street furniture. Bicyclist requirements include safe and convenient bike racks for security, bike lanes for travel on busy streets, and Kittelson & Associates, lnc. 3 7 NORTH (NOT TO SCALE) LEGEND PROPOSED RESIDENTIAL PROPOSED INDUSTRIAL - - - UGB FIGURE 12 IDENTIFIED POTENTIAL DEVELOPMENT SITES Estacada Transportation System Plan other facilities for cyclists located at destinations. Transit users can be enticed with many different types of facilities and should be integrated with the bicycle and pedestrian modes to ensure adequate accessibility. Specific pedestrian, bicycle, and transit improvements will be discussed later in this plan. Future Conditions for Automobile Traffic Future peak hour traffic volume estimates are required to reflect the impact of a variety of alternatives on the transportation system. Figure 14 illustrates the forecasted peak hour traffic volumes used in the future year analysis. The traffic volume forecast represents the best estimate of future conditions for both the local system and the state highways. The level of service results for the key intersections are shown in Figure 14 and have been prepared in accordance with the procedures presented in the 1994 Highway Capacity ~anual~ The 1991 Oregon Highway Plan'' outlines a level of service standard for the State Highway System, whch would include both highways in Estacada. Both Highway 2 1 1 and Highway 224 are considered highways of a District level of importance. The level of service standard for both of these highways is level of service D. The Oregon Highway Plan goes on to state that the level of service will be determined by the 1985 Highway Capacity Manual. Because the HCM has been updated since the Oregon Highway Plan was published, the analysis is completed using the updated procedures of the Highway Capacity Manual. As shown in Figure 14, several of the stop-controlled approaches to the highway (side streets intersecting with the hghway) will operate at or near capacity in 201 9, with hgh delay for the side street movements. The level of service reported for these intersections is based on the delay that the minor street approach experiences. It is important to note that vehicles traveling through the city on the highway will not experience an uriacceptable level of service; although as delay for the side street increases, side street motorists become more likely to accept shorter gaps, introducing potential safety concerns for the highway. It is recommended that accident rates throughout the city be monitored in the future to identify specific locations where safety deficiencies may exist. The remainder of the unsignalized intersections in the city will operate acceptably. It should be noted that this analysis has identified the impacts of specific developments that the trending forecast scenario could not. In particular, the development of the industrial park property west of the Highway provides a keen insight as to the future needs of the transportation system. To address the forecast deficiencies, it is recommended that Highway 2 1 1.-224 be monitored closely in the future to determine adequate timing for improvements for the intersections throughout the corridor. Specific long-term improvement options are discussed in the following section. Signal Warrant Analysis Estacada currently has only one traffic signal - at the Highway 21 1Broadway intersection. It is not unusual for a community such as Estacada to have more than one traffic signal on the highway in order to maintain acceptable traffic operations and to allow safe pedestrian crossing of the highway at grade. However, signals may only be installed when traffic signal warrants are met. A traffic signal warrant is a policy that is used to judge whether the installation of a trafic signal may be appropriate. The Manual of Uniform TrafXc Control Devices (MUTCD)", is the national standard that was used to consider several unsignalized intersections in the city. Using the warrants presented in the MUTCD, traffic engineers can evaluate several categories that may justify a traffic signal. Traffic signal warrants in the MUTCD consider traffic levels throughout the day, during the peak hour, the presence of pedestrians, and accident rates in order to justify signal installation. Based on the future forecasts developed, MUTCD warrants were checked and the results of the analyses are shown in Table 4: Kittelson & Associates, Inc. 34 NORTH (NOT TO SCALE) 0UJm MNN LEGEND CM = CRITICAL MOVEMENT (UNSIGNALIZED) LOS = INTERSECTION LEVEL OF SERVICE (SIGNALIZED)/ CRITICAL MOVEMENT LEVEL OF SERVICE (UNSIGNALIZED) Del = INTERSECTION AVERAGE DELAY (SIGNALIZED)/ CRITICAL MOVEMENT DELAY (UNSIGNALIZED) V/C = CRITICAL VOLUME-TO-CAPACITY RATIO FIGURE 14 2019 HAND ASSIGNMENT ANALYSIS - WEEKDAY PM PEAK HOUR LEVEL OF SERVICE Estacada Transportation System Plan Way 1999 Future Cond~tions City of Estacada Draft Transpartation System Plan Section 3 As shown in Table 4, it is likely that the intersections that meet warrants will require a traffic signal or other types of traffic control change in the future. These intersections should be closely monitored over the next 10-1 5 years to determine the timing for installation of a traffic signal or other mitigation. A detailed review of the mitigation measures identified for the intersections is included in the next section of this memorandum. Table 4 Traffic Signal Warrant Analysis IDENTIFICATION OF DEFICIENCIES In addition to the previously described capacity analysis, the future conditions evaluation involved the review and identification of other system deficiencies. This evaluation included a review of all transportation modes. k Pedestrian Circulation As documented in the Existing Conditions technical memorandum, the City of Estacada's pedestrian network includes sidewalks along many of the local streets within the downtown. The presence of sidewalks decreases in the outer portions of the city and there are no sidewalk facilities along Highway 2 1 1-224 through town. Specific pedestrian improvements to enhance the existing system are identified in Section 4. MUTCD Warrants Met? Bicycle Circulation Warrant 1 The City of Estacada does not currently offer designated bicycle facilities with the exception of the River Trail multi-use path. Connections to the recreational facilities (Clackamas River and the regional parks) are currently limited for cyclists. Improving the accessibility of the existing recreational areas was the primary motivation in developing the alternatives. The alternatives presented in Section 4 identifies a comprehensive bicycle system for the city. C&, de\ ~CLCUQ &AQ tl/d dJ - &-Y&%C.JC t rt~Cec&d LWt ~us+aiqA Warrant 2 Public Transit w The City of Estacada is served by Tri-Met, which serves the Portland-metropolitan area and parts of Clackamas County. The primary deficiency with respect to the existing service is the limited frequency on Saturday and lack of service on Sunday. An alternative analysis presented in Section 4 reviews Warrant 11 potential improvements to the existing service within the city. b*s s4+ sLz&\/s 7 Kittelson & Associates, lnc. May 7 999 Future Condit~ons Analysis Gty of Estacada Draft Transportation System Plan Section 3 - SUMMARY The projected future conditions analysis identifies several key findings including: 4 The City of Estacada's population is forecast to grow by an average annual rate of 2.5 percent (a 65 percent increase) over the next 20 years. 4 The City of Estacada's transportation system is expected to accommodate future growth in travel demand without triggering the need for major capacity-related roadway improvements. The installation of traffic signals along the highway will mitigate the operational deficiencies identified in the 2019 traffic forecast. An analysis of the circulation system within the city found that enhancements were needed outside of the downtown area to improve accessibility for all modes, especially pedestrian and bicycle. Kittelson & Associates, Inc. 3 7 Section 4 Alternatives Analysis May 1999 Alternatives Analys~s City of Estacada Drat? Transpoltation System Plan Section 4 Alternatives Analysis l NTRODUCTlON This section describes future transportation improvement alternatives for the city that could be implemented to mitigate existing and future transportation system deficiencies. The improvements are divided into four parts: geometric improvements, capacity improvements, roadway connectivity improvements, and other needed transportation improvements. A geometric deficiencies list was developed through field studies and through evaluation of existing transportation data. This list identifies intersections that could be improved to enhance the safety of the traveling public. Operational improvements include long-term roadway improvement alternatives that will increase vehicular capacity to meet the projected demand. Multimodal improvements were identified to address overall system deficiencies related to the pedestrian, bicycle, and transit system. Special effort was provided in considering and recommending improvements to the pedestrian and bicycle systems. Recommendations were developed that create direct linkage provide for a continuous pedestrian and bicycle transportation system. The alternative analysis and subsequent recommendation process were handled separately to ensure that a complete system for each mode was identified without constraint. PROPOSED GEOMETRIC IMPROVEMENTS The need for mitigation of existing and future roadwaylintersection operations in Estacada is relatively limited in scope.The topography in and around Estacada makes the design of roadways and pedestrian and bicycle facilities difficult in many instances. For that reason, there exist some geometric deficiencies that are of concern, but because no operational or safety problem currently exists or is anticipated in the future, the need for improvement is considered as a long-term need. River Lake RoadICadonau Roadbiighway 21 1 These intersections provide access to the southern portion of Estacada and the recreational uses on the Clackamas River. The intersections are poorly aligned because of the horizontal alignment of the highway along this segment. The River Lake Road and Cadonau Road intersections with Highway 2 1 1 are offset by approximately 100 feet, which can result in left turn conflicts between vehicles at these intersections. The sight distance is also limited at this location for the side street approaches resulting in a potentially unsafe condition. The close proximity of the intersecting roadways to the Clackamas River bridge (ODOT Bridge #02208) would require widening of the bridge to address the deficiencies. Although the existing geometry is not ideal, improvements are not recommended at this location in the near-term. As traffic volumes increase along the highway, safety and operations at these intersections should be monitored to determine the need for improvements. Furthermore, if replacement of the bridge is deemed necessary in the future, the design should accommodate realignment of this intersection. To improve the existing intersection, the intersection can be realigned and striping can be installed to provide better defined movements. This improvement would require right-of-way acquisition from each side of the Highway and street widening on the side street approaches. The realignment of the intersection would allow for efficient operations of the intersection. The second alternative includes closing the hver Lake Road access to the Highway and requiring the residents on River Lake Road to use Poplar Road. Consideration of either alternative should include access for emergency vehicles and the effect of additional traffic on Poplar Road. Kittelson & Associates, lnc. 39 Lit' of Estacada Drart Transporrar~on iian 3ecrion 4 This intersection should be monitored in the future to identify whether the traffic volumes on the Highway warrant consideration of these potential mitigation options. Regan Hill Roadl4th AvenueIShafford Street Another geometric improvement that considered by the TSP Advisory Committee was the reconfiguration and modification of the existing traffic control at the Regan Hill14th AvenueIShafford Street intersection. This five-legged intersection is configured such that the Regan Hill traffic is required to stop and travel out of direction to continue on 4th Avenue. The angle of the different legs at the intersection and the proximity of private driveways within the intersection make thls a difficult intersection to navigate. Figure 15 shows a potential mitigation strategy that can be implemented to improve future intersection operations. This improvement realigns the intersection to improve the through movement on 4th venue to Regan Hill Road and increase the sight distance for vehicles on Shafford Street. Shafford Street/NE 6th Avenue Shafford Street intersects NE 6th Avenue on a horizontal curve west of the hlgh school. This intersection is slightly offset from the staff parking lot driveway, which is a one-way driveway into Estacada High School. The sight distance from the Shafford Street leg of the intersection is limited by the roadway curvature. It is recommended that frontage shrubbery on the southwest comer of the intersection be limited to low lying landscape that does not further obstruct sight distance. Figure 16 shows the proposed realignment of this intersection. Duus RoadEagle Creek Road At the Duus RoadEagle Creek Road intersection, sight distance is limited by the existing landscaping. It is recornended that the Clackamas County or the city require landscaping maintenance on the Duus Road approach to improve sight distance at the intersection. FUTURE OPERATIONAL IMPROVEMENTS The existing transportation infrastructure (street widths and right-of-way) within the central city is sufficient for the future travel demand. There does not appear to be the need to provide additional travel lanes to any study area roadway for capacity purposes. The need for operational improvements center around increasing capacity at intersections and improving connectivity to preserve the existing capacity of the system and for improved connectivity. Specific intersection and roadway improvements are discussed below. Highway 21 1 -224miver Mill Road Intersection The Traffic Impact Study conducted for the Northwest Estacada Industrial Area (Kittelson & Associates, Inc., May 1998) outlined the impacts associated with the buildout of the 200-acre parcel located northwest of the River Mill RoadNighway 2 1 1-224 intersection. The study recommended the installation of a traffic signal at the River Mill RoadHighway 21 1-224 and NW Park AvenuelHighway 21 1-224 intersections at full build-out of the proposed site and the development of a local street system on-site. Kittelson & Associates, lnc. 40 NORTH (NOT TO SCALE) FlOURE 18 CONCEPTUAL IMPROVEMENT NE 6fH AVE/SHAFFORD ST EXISTING STREET 1- CONCEPTUAL IMPROVEMENT May 1999 Alternatives Analysis City of Estacada Draft Transportation System Plan Section 4 Highway 21 1 /Highway 224 Intersection As discussed in the previous section, the Highway 2 1 1 I224 intersection is projected to operate at LOS F in the future. The existing traffic control at the intersection includes stop control on the Highway 21 1 (northbound) approach. The alternatives identified to address the LOS deficiency include the following: oa modify the traffic control so the Highway 224 (westbound) approach is stop-controlled; oa install a traffic signal; or c construct a roundabout at the intersection. Alternative 1: Provide stop control to Highway 224 approaches The intersection geometry % reviewed to identify whether the lower volume movements (Highway 224 westbound and eastbound ti ~gh) be stop controlled. Under this scenario, the eastbound right-tum (Highway 224 to Highway 2 I 1 traffic) would be uncontrolled as would the northbound left and right-tum movements. This type of control was used at the intersection prior to the 1970s. In the 1970s, the original control change was implemented to improve route continuity on Highway 224 and to comply with driver expectancy. In other words, the intersection control was changed because a stop sign on a straight section of highway is contrary to drivers' expectations, and can create confusion for unfamiliar drivers. Other factors considered included the higher speeds on the Highway 224 approach because of the layout of the intersection and the curvature of the highway. The advantage associated with the control change at the intersection is that this change would be the lowest implementation cost option. The disadvantages associated with a control change include: @ the stop control may be counter to and result in a violation of driver expectancy; and @ this change may only be a short-term solution, depending on traffic patterns d the intersection. Alternative 2: Install a traffic signal The installation of a traffic signal at the intersection was also reviewed as a possibleimprovement for the intersection. Figure 17 provides a layout sketch for the traffic signal. Analyses of the future forecasts indicate that the intersection will likely meet signal warrants, within the next 20 years. The advantages associated with the installation of a traffic signal at this location include: c reduces delay on the Highway 21 1 approach as compared to the existing stop control; c restores future intersection operations to acceptable levels; and, c driver expectancy issues can be addressed through advance signing and flashing beacons. The disadvantages associated with the installation of a traffic signal include: increases maintenance costs for ODOT or city depending on arrangement for control of traffic signals (per previous agreement). Kittelson & Associates, lnc. 43 I 1- EXISTING STREET I I I- CONCEPTUAL IMPROVEMENT FIGURE 17 CONCEPTUAL IMPROVEMENT 'A' HWY 211 - HWY 224 INTERSECTION Estacada Transportation System Plan EXISTING STREET CONCEPTUAL IMPROVEMENT FIGURE 18 CONCEPTUAL MPROVEMENT HIGHWAY 211-HIGHWAY 224 INTERSECTION Estacade Transportation System Plan . ___, - - City of Estacada Draft Pansportation System Plan section 4 Alternative 3: Construct a roundabout at the intersection Installation of a roundabout was reviewed as a possible improvement for the intersection, and Figure 18 provides a sketch for thls alternative. The advantages associated with the installation of a roundabout include: reduces delay on the approaches and reduces speeds as vehicles enter the city; improves safety for motor vehicles (reduced severity of accidents); lower maintenance costs over the life of the roundabout (as compared to a traffic signal); and, a roundabout could serve as a gateway to the city. The disadvantages associated with the installation of a roundabout include: 0 higher initial costs for construction and right-of-way as compared to a signal or stop-control; and, potential for public resistance to this type of control due to unfamiliarity Recommendation The intersection treatment in Alternative 1 is the lowest cost, but does not provide a long-term mitigation of a potential capacity deficiency. The consideration of the traffic volumes at this intersections should be monitored closely in the future to insure traffic operations and safety are not compromised during the peak periods. Highway 21 1-224 Access to Downtown Estacada Safe and convenient access to the central city from the highway is of primary importance to local residents. Analysis of the 2019 No Build peak hour forecast revealed that the unsignalized approach to Highway 21 1-224 at Main Street will exceed capacity and operate at a poor level of service in the future. As it becomes more difficult to turn left from Main Street onto the highway it is likely that many motorists will modify their routes to use the BroadwayMighway 2 1 1-224 traffic signal for egress from the downtown. Whde it is probable that a larger portion of the traffic leaving downtown will use the existing traffic signal at Broadway, it is important to recognize the capacity limitation that the Broadway signal presents. A series of alternatives were reviewed to mitigate potential access deficiencies into the downtown including: implementing a one-way couplet in the downtown on Main and Broadway; installing a traffic signal at Main Street; or, installing a traffic signal at SW 2nd Avenue. Alternative 1: One-way Couplet -- Main and Broadway An alternative treahnent was developed and reviewed using street circulation as a way to increase capacity and improve access to the city. This alternative included conversion of Main and Broadway to one-way streets one block north of the Highway. Figure 19 shows the alternative circulation plan proposed to improve future egress from downtown. The alternative provides egress via the traffic signal at Broadway, rather than the unsignalized Main Street approach. One of the primary issues associated with this circulation change is the effect of the access to the fire department. There are additional issues (such as public acceptance, sign installation and maintenance) that would need to be considered prior to conversion of the city streets to one-way traffic. Strictly from a traffic operations standpoint, however, this option Kittelson & Associates, lnc. 45 LEGEND + One-way (New Designation) (~ew Two-way (Old Designat ion) FIGURE 19 ONE-WAY CIRCULATION PLAN - DOWNTOWN ESTACADA Estacada Transportation System Plan 241 7\DWCS\FINAL\2417FL26.DWG May 7999 Altemartves Analysis City of Estacada Draft Transpartation System Plan Section 4 would mitigate the forecasted capacity deficiency. The advantages of modifying the circulation system to a one-way couplet include: traffic operational benefits, including increased capacity and reduced conflicts between turnin< movements and pedestrians; improved utilization of the signalized approach on Broadway (by vehicles accessing the highway); and, likely to be lowest cost implementation. The disadvantages associated with this option include: reduces accessibility for businesses along Broadway and Main; requires out-of-direction travel in the downtown; and, requires the use of the highway for local circulation needs. Alternative 2: Install a traffic signal at Main Street intersection As discussed in Section 3, the forecast volumes at the Main StreetMighway 224 intersection will warrant a traffic signal in the future. The close proximity of the Main Street intersection to the signal at the Broadway intersection would require specific coordination between the two signals on the Highway and could result in constrained operations if proper coordination is not maintained. Although signal control strategies could be developed to handle the turning traffic that exists at the two intersections, the distance between the intersections violates ODOT spacing standards for traffic signals and an exception would have to be made for this intersection. Alternative 3: Install a traffic signal at Highway 21 1-224/2nd Avenue intersection Installation of a traffic signal was reviewed as a possible improvement for the 2nd ~"enue . as a way to provide a second alternative for access to downtown. The advantages associated with the installation of a traffic signal at this location include: a traffic signal would provide an intervening opportunity to access the Downtown in advance of the Broadway signal for vehicles traveling southbound on the highway, thereby reducing the volumes on the highway south of S W 2nd Avenue; and a signal would provide another opportunity for pedestrians and cyclists to cross the Highway. The disadvantages associated with the installation of a traffic signal include: increases maintenance costs for ODOT or city depending on arrangement for control of traffic signals (per previous agreement); and Many of the business are located in close proximity to Main and Broadway; signalized access at SW 2nd Avenue will not provide as direct of access to these businesses. Recommendation The intersection treatment in Alternative 1 is the lowest cost alternative, and would likely mitigate the forecasted capacity deficiency. The consideration of the effects on local businesses and access to the central city would have to be considered carefully. Regardless, it is recommended that this issue be monitored closely in the future to insure efficient access to the commercial district is maintained. Kittelson & Associates, lnc. 48 May 1399 City of Estacada Draft Transpoltatlon System Plan ROADWAY CONNECTIVIM IMPROVEMENTS The existing grid system within the City of Estacada serves its residents well. A grid system provides good accessibility for vehicles and other users to access the services of the downtown area. Connectivity of the street system is important for emergency vehicle access, pedestrian and bicycle mobility, and should be promoted during the development of new subdivisions and commercial properties. The roadway system should continue to be developed to ensure that adequate circulation is provided. To enhance the connectivity of the system, several roadway projects were identified. These projects should be considered separately and selected based on the basis of future system needs. However, as properties develop throughout the city, careful consideration should be given to the type and location of connections to the existing street system, and to connectivity and access issues within any new development. It is essential to consider pedestrian, bicycle and vehicular access both to and within the new development and to provide a sense of linkage to and continuity with the existing system. It is expected that the five alternatives identified by this analysis will be complimented by additional connections in the future as Estacada grows and additional right-of-way is acquired. The following proposed roadway projects are shown in Figure 20. It should be noted that the improvements identified in Figure 20 represent conceptual alignments only; a detailed engineering study will need to be conducted to identify the specific alignment of any proposed roadway. The following section describes each new roadway project proposed in the alternatives analysis. Alternative 1A: Hill Way Extension An extension of Hill Way west to Eagle Creek Road would provide a second east-west connector to the highway from the northwest part of the city. This connection will become increasingly important as additional residential subdivisions are constructed in this area. The advantages associated with this connection inllude: provides residents in the northeast section of the city with an alternate connection to Eagle Creek Road and the Highway; provides a secondary access to residents on Cemetery Road to enhance emergency vehicle services; and provides infrastructure for future residential development in areas to the north of the high school. The specific disadvantages associated with this alternative include: right-of-way availability is limited due to lower potential for redevelopment on the parcels adjacent to the proposed extension; and sections of alignment adjacent to the school property may result in higher construction costs for city because the half-street improvement would have to be funded by the city. Alternative 1 B: Alternative to Hill Way Extension An alternative to the Hill Way extension would include an alignment that allows construction based on the development of property between Cemetery Road and Eagle Creek Road. One possible alternative includes a connection via the current Hinman Road alignment. This improvement would provide similar advantages to Alternative 1 A, although depending on the alignment the connection may be more difficult because of the topography. Kittelson & Associates, lnc. 49 FIQURE 20 PROPOSED ROADWAY PROJECTS Estacada Transportation System Plan May 1999 Altematlves Analysis City of Estacada Draft Transportation System Plan Sect~on 4 The advantages associated with this connection include: offers similar improvements as Alternative 1A; and 0 sections of alignment will be funded by developers as a condition of approval. The disadvantages associated with this connection include: promotes development further fiom the city center, which induces longer trips to downtown and less walking and biking trips; and increases traffic on Hinman Road. Recommendation The alignment in Alternative 1B allows the city to require road construction as the property in this area develops. While the alignment of Alternative 1A is easily defined, it would be cost-prohibitive because of the right-of-way acquisition involved and primarily for this reason, Alternative 1B is recommended. The alignment of this connection should consider terrain, but as parcels develop in this area an east-west easement connection should be provided to the city and either half- or full-street improvements should be conditioned on development in this area. Alternative 24: Regan Hill Road-Hill Way Connection One of the deficiencies of the future system is the lack of connectivity east of the central city. This is primarily due to the existing topography constraints between Regan Hill Road and Coupland Road. A north-south connection between Regan Hill Road and Hill Way is recommended to address this circulation deficiency. There are several advantages associated with this connection including: improyed pedestrian, bicycle, and vehicle access to the east; improved emergency vehicle access; and this new roadway would provide an alternate travel route for destinations north of the city. Alternative 28: Regan Hill Road-Cemetaly Road Connection The terrain between Coupland Road and Regan Hill Road makes road construction costs and development difficult. An alignment further east of Alternative 2A is more feasible and would provide the intended connection. Recommendation The alignment in Alternative 2B reduces the reliance on Hill Way and reduces out of direction travel for all modes in this emerging neighborhood. The consideration of terrain and construction costs for the alignment also favor the connection proposed in Alternative 2B. Alternative 3: NE 6th AvenuelMill Road Extension to Industrial Way An extension of NE 6th Avenue to the Highway 2 1 1 -224flndustrial Way intersection was identified to improve overall connectivity of the transportation system for pedestrians, cyclists, and motorists. The extension of Mill Road west to Industrial Way would provide another location for access to the highway. Discussions amongst the citizens considered this improvement desirable for accessibility to the recreational uses at the Park and to improve access to the schools and the north section of the city. One additional advantage associated with this alternative is that this connection would provide another alternative to the existing routes, reducing reliance on the highway and Eagle Creek Road. Kittelson & Associates, lnc. 51 May 1999 Alrernat~ves Analysis City of Estacada Draft Transportation System Plan Section 4 Alternative 4: River Mill Road-Industrial Way Connection To reduce reliance on the highway for local trips in the northwest portions of the city, a connection from River Mill Road to Industrial Way is recommended. This connection would provide an alternative to th~ Highway for traffic circulation at the Estacada Timber Park and the NW Estacada Industrial Park. Thi~ connection would provide a suitable location for a traffic signal on Highway 21 1-224 that would allow crossing for pedestrians and cyclists to the Riverfront trail and the Timber Park. OTHER TRANSPORTATION DEFICIENCIES Pedestrian System The key objective in the identification of future pedestrian improvements was to provide connectivity between major activity centers. Within the City of Estacada, these activity centers include the downtown, Estacada High School, Estacada Grade School, the parks, the post office, the Community Center, and other recreational areas. According to the existing conditions analysis and feedback received fiom the general public and the Study Advisory Committee, the following improvements should be considered in the future: 0 the provision of continuous sidewalk network in the vicinity of the schools and the residential areas surrounding the school; 0 the provision of sidewalks on Cemetery Road linking the major subdivisions with the schools; compIetion of sidewalk links along Main Street; provision of curb extensions and pavement markings that clearly delineate crosswalks; use of median treatments along the highway that provide pedestrians with a safe-haven at mid- crossing; sidewalks on the Highway near the entrance to the downtown, around City Hall, the public library, and the community center; and sidewalks connecting the downtown with the Clackamas River and the recreational facilities at McIver Park. The public input process for the TSP identified community concerns regarding the lack of pedestrian crossings along Highway 21 1-224, especially in the vicinity of the central business district. The combination of Highway 21 1-224's wide pavement width, growing traffic volumes, and commercial orientation in this area confirm the need for additional pedestrian amenities. In addition to providing traditional sidewalk and multi-use path facilities, there are several other potential enhancements that should be considered along Highway 21 1-224 including: provision of additional street lighting to enhance visibility of pedestrians at night; construction of curb extensions that reduce the exposed crossing distance pedestrians must walk; and 0 use of median treatments that provide pedestrians with a "safe-haven" at a mid-crossing; potential locations include Main and the Wade Street-Elm Road intersections. Kittelson & Associates, lnc. 52 May 1999 Mema rives Analysis City of Estacada Draft Transpofiation System Plan Section 4 Bicycle System Bicycle facilities are needed for both commuting and recreational purposes within the city. Thus, consideration of bike lanes, multi use trails and connections via the street system should be considered for cyclists. Designated on-street bike lanes are not recommended for the city street system because the existing volumes on the system do not warrant separation of bicycle traffic. In the future, the higher volume streets, Main, Broadway, 6th Avenue and Eagle Creek Road should be monitored to ensure conditions for cyclists are comfortable. Improvements to the connectivity of the system will occur concurrently with roadway improvements. There are some existing streets that can be restriped to provide bike lanes and separate cyclists from traffic. Main Street is one example where angled parking could be converted to parallel parking and bike lanes could be added. The Highway 2 1 1-224 comdor has an intermittent shoulder for bicycle traffic that could be enhanced by bicycle route signing and increasing the frequency of maintenance activities, i.e. sweeping the highway, and updating the striping. The planning completed for the multi-use paths in the Estacada Parks and Open Space Master Plan should be followed to improve the recreational opportunities within the city. Transit System Transit service provides mobility to community residents who do not have access to automobiles and provides an alternative to driving for those who do. Transit service should meet the needs of both travelers within the city and those making trips outside the community. Potential improvements for the transit system include: s improved connections with the neighborhood south of the Highway; s provision of additional service on the weekends and during peak periods; improved visibility for existing stops and park and ride facilities; and provision of sidewalks that can improve accessibility to bus stops. Discussions with local agency staff and citizens indicated that there exists a need to improve accessibility of transit for the elderly. Consideration should be given to coordinating the existing dial-a-ride service provided by the Senior Center with similar services in neighboring communities. Combining Estacada with other neighboring communities such as Molalla, would improve the frequency of trips to specialized medical service providers or other destinations. POLICY ALTERNATIVES EVALUATION The following discussion presents specific policies and other alternatives that were considered for inclusion as part of the plan. Reduce Vehicular Reliance through Zoning and Development Code Revisions In part, Oregon's Transportation Planning Rule seeks to reduce the reliance on personal vehicles as a mode of travel through the creation of environments that foster alternative modes of transportation. Local land uses can have a significant impact on the form of transportation necessary to travel from one location to another. Specifically, by carefully structuring local zoning and development codes, development activities can be focused such that a more self-contained community can be achieved. Construction of mixed-use developments, the location of commercial and service businesses in the vicinity of residential land uses, and the provision of employment opportunities near residential areas are all means by which the need for travel by personal automobile can be reduced. Kittelson & Assoc~ates, lnc. 53 May 7 393 n~ldflldii ves nfidiySiS City of Estacada Draft Transportation System Plan Section 4 Recommendation In relatively rural areas such as Estacada, the need to travel long distances to employment, commercial, and service opportunities fosters a travel environment dependent on personal automobiles. The provisior of a mix of uses and additional employment opportunities (such as the Industrial Park) within th~ community will strengthen the community and ensure that Estacada can achieve self-sufficiency from other communities. Reducing the dependence on automobiles for mobility is accomplished by providing facilities for pedestrians, cyclists, and others. Proper design for accommodating pedestrians and cyclists can be accomplished by requiring developers to provide facilities. Building near the sidewalk line is one of the crucial elements in creating places that are appealing to pedestrians12 and should be identified in the zoning codes. Zoning, land use, and allowable development forms play an integral part in transportation choices. Continued Access Management Along Highway 21 1-224 The Oregon Department of Transportation has established access spacing standards for Highway 2 1 1 and Highway 224. These standards, which are presented in detail in the next section, are intended to ensure the long-term safety and efficiency of the Highway 21 1-224 corridor. Implementation of the standards as they relate to local development activities will be essential to ensure the long-term viability of the comdor. The future conditions analysis, as presented in this document, assumes that current public roadway spacing along Highway 21 1-224 will be maintained into the long-term future. As long as the current public road access spacing standards are maintained and new private access points are allowed in accordance with the access spacing standards presented in Section 5, it is expected that the forecast future traffic conditions will be reflective of long-term operations along the Highway 21 1-224 corridor. converse&, if multiple additional access points are granted along Highway 21 1-224, it can be expecte, that additional incremental delay will be added to the highway's operations. Recommendation The existing access control should be maintained as closely as possible. No specific construction need is evident to implement this improvement as it simply promotes compliance with existing roadway policy. No immediate land use actions would be required either. Instead, as property along the highway is developed or redeveloped, appropriate action should be taken by local and state agencies to ensure that the relevant access spacing standards are reasonably enforced. Section 5, Transportation System Plan includes an access management plan for city streets and a corresponding implementation strategy complete with typical spacing standards, driveway widths, etc. Implement Transportation Demand Management Measures Transportation Demand Management (TDM) measures identify opportunities to reduce the impact of trips generated by various land uses. Specifically, TDM techniques typically seek to reduce reliance on single- occupant vehicle trips and promote the use of alternative travel modes by persons accessing a given area or facility. The Transportation Planning Rule encourages the evaluation of TDM measures as part of the TSP development process. TDM strategies often focus on major employers or other sources of traffic that can be influenced through scheduling changes, alternative transit opportunities such as carpools and buses, and other means. Oftentimes, financial disincentives are included in programs as a revenue generator to support other elements of an overall program. The success of fee parking and other commonly used disincentives ia dependent on the environment in which a given employer is located. Kittelson & Associates, lnc. 54 May 7 999 Citv of Estacada Draft Transportation System Plan Altema fives Analysis Section 4 Given the few number of major employers and the rural nature of the area, the TDM measures available are limited in scope as compared to larger metropolitan areas. Typical TDM measures such as fee parking are not practical in a community where employee-paid parking does not exist and employers are often located several miles from the population base. Although no major employers are located within the area, residents can still be encouraged to carpool when appropriate. Provision of sidewalks and other pedestrian amenities in key locations is another means by whch the use of non-auto dependent travel can be encouraged. Recommendation Given the relatively remote location and character of the City of Estacada, TDM efforts would likely be most successful if focused on efforts to develop the community's pedestrian and bicycle infrastructure. Creation of pedestrian and bicycle facilities will at least provide the community's residents with a viable alternative mode of transportation for local travel. Improved Transit Service to Reduce Reliance on the Automobile Public transportation provides mobility for those lacking transportation options and for those concerned about increasing traffic congestion and the environment. For public transportation to provide an option to citizens, service must be consistently available. Currently, existing service is not provided every day. For transit to contribute effectively to the goal of reducing reliance on the automobile, transit service must be added to the existing schedule. Recommendation - The existing service can be improved by increasing service frequency via days and hours of converage provided. The next section outlines a number of recommendations for improvements to the current service. SUMMARY This section has presented the alternatives that have been developed and evaluated- to address the near- term and long-range transportation deficiencies within the City of Estacada urban growth boundary. Section 5, which follows, incorporates the recommended improvements for each transport mode into the city's transportation system plan. Kittelson & Associates, lnc. 55 Section 5 Transportation System Plan May 1999 Transpoflatlon System ?/an City of Estacada Draft Transporration System Plan Section 5 Transportation System Plan This section describes the individual elements that will comprise the Transportation System Plan for the City of Estacada. The preferred alternative presented in this TSP consists of those transportation improvements necessary to support the development of the city. The TSP addresses several components for development of the future transportation network including: Roadway System Plan Pedestrian System Plan Bicycle System Plan Public Transportation System Plan Marine System Plan AirIWaterPipeline System Plan Access Management Plan Implementation Plan The individual plans presented in this section were developed specifically to address the requirements of Oregon's Transportation Planning Rule. Projects associated with each plan element have been identified and costs have been estimated as described herein. The recommendations set forth by this plan reflect the findings of the existing and future conditions analyses, the alternatives analysis, and the concerns expressed by both the citizens of Estacada and the public agencies that serve them. ROADWAY SYSTEM PLAN The roadway plan for the City of Estacada is relatively straightforward. A review of the future year forecasts and level of service analysis provides an insight into the needs of the system and areas of critical importance. Development of the roadway system plan was completed in three steps. The first step included a detailed review of the functional classification system and recommendations for new classifications and design standards associated with each facility. Based on this initial steps, roadway cross sections and design standards are proposed for future modernization of existing roadways and construction of new streets. Recommended Functional Roadway Classifications The need for a functional street classification system arises from the need to balance mobility and accessibility. Functional classes establish a standard to which a roadway must be built. This standard is designed to accommodate the traffic demands that are expected and are acceptable to the community. The concepts of mobility and accessibility are considered during the development of the functional classification map to ensure that adequate facilities are planned. Planned facilities should provide sufficient access to adjacent land uses and ensure neighborhood livability. The recommended classification system reflects multimodal needs, a system hierarchy, and trip type. For example, long distance trips are facilitated on streets that are designed for higher speeds, whereas local trips can be accommodated on shorter, low volume streets. Finally, the system accommodates pedestrian or bicycle travel as well as auto usage. Kittelson & Associates, lnc. 57 IVldY 1 YYY - -p- .-- - -Ye.- - C~ty Estacada Draft Transportat~on System Plan Section 5 The recommended functional classification system for Estacada relies on four levels of streets to address the needs for mobility and accessibility. The functional purpose of each classification is described below. Arterials The primary function of arterials is to provide through-movement of traffic, primarily serving automobile mobility, pedestrian, and bicycle needs. In small communities, arterials are roadways that primarily serve traffic entering and leaving the urban incorporated area. Arterials tend to carry significant interurban travel between downtown areas and outlying residential areas. While arterials may provide access to adjacent land, that function is subordinate to the travel service provided to major traffic movements. Arterials are the longer distance, highest volume roadways within the urban growth boundary. Although focused on serving longer distance trips, pedestrian andlor bicycle activities are associated with the arterial streetscape. Major Collector The primary function of a major collector is to facilitate the movement of city traffic within the urban growth boundary of the city. Collectors should provide limited access to commercial properties while maintaining circulation and mobility for users. Their connectivity and their higher traffic volume within the city distinguish collectors, although they are designed to carry lower traffic volumes at slower speeds than arterials. Major collector streets are characterized by two or three-lane facilities. Bike lanes should be striped where traffic intensity and speed on these facilities warrant consideration or where the street directly connects to a land use which generates bicycle traffic, i.e., a school or park. Minor Collector - The primary function of a minor collector is to connect neighborhoods with major collector streets and to facilitate the movement of local traffic. Speeds on these facilities should remain low to ensure - communiij livability and safety for pedestrians and cyclists of all ages. On-street parking is more prevalent and pedestrian amenities are typically provided on minor collectors. Striped bike lanes are unnecessary for many minor collectors because the traffic volumes and speeds should allow cyclists to travel concurrently with motorists. Local Streets Local streets are intended to provide access to private dwellings and businesses. The local street is characterized by two travel lanes, with on-street parking typically provided on one or both sides. Local streets should be designed to serve pedestrians and the community, as the local street is part of the public realm. Street trees and other diversions should be encouraged to reduce the speed of vehicles in neighborhoods where children play. Using the four roadway designations described, the Functional Classification Plan presented in Figure 21 was developed. Under the proposed plan, the unmarked streets would be designated as local streets. New streets proposed by development must be reviewed by the Public Works Departme. '- insure system consistency and to review the design. Roadway Design Standards Roadway design standards are based upon functional and operational characteristics of streets such as travel volume, capacity, operating speed, adjacent land use, and composition of traffic. They are necessary to ensure that the system of streets, as it develops, will be capable of serving the traveling public while also accommodating the accessibility of adjacent lands. Kiltelson & Associates, lnc. 58 NORTH :NOT TO SCALE) FIGURE 21 FUNCTIONAL CLASSIFICATION PLAN Estacada Tsanagortation System Plan May 1999 Transports tlon System Plan City of Estacada Draft Transportation System Plan Section 5 The proposed roadway design standards are shown in Figure 22. The typical roadway section provides a blueprint for the expected cross section of the existing and future streets. The recommended cross sections illustrated are intended for planning and design purposes for new construction as well as those locations where it is physically and economically feasible to improve existing streets. The typical cross sections present standards that allow flexibility in defining the roadway width. Where geometric conditions are limiting right-of-way and road widths can be reduced based on the optional features that are noted on the standard cross sections. The use of optional components such as on-street parking and planter strips would be subject to the discretion of the City of Estacada. In the case of Highway 21 1-224, appropriate representatives fiom ODOT would have ultimate authority over the roadway design. Alignment and operational characteristics should be considered and thoroughly reviewed when considering a new road or an upgrade of an existing street within the system. An arterial such as Highway 2 1 1-224 will have a right-of-way requirement of 94 feet and will include 2-5 12-foot wide travel lanes. Both arterial cross-section options incorporate six-foot wide sidewalks separated from the highway by a seven-foot wide landscape strip. Six-foot wide on-street bike lanes are also included in both arterial cross-section designs. No on-street parking will be permitted. In reviewing these standards, it should be noted that ODOT would have the ultimate authority as to which improvements are implemented along Highway 2 1 1-224. South of the Highway 2 1 1-224 junction, the roadways will transition to the two- to three-lane cross section. Major collector streets will have a right-of-way requirement of 82 feet and a required cross-section consisting of two 12-foot wide travel lanes and five-foot wide sidewalks. Optional landscape strips and on-street parking -may also be required at the discretion of the city. If the city chooses not to require these amenities, the right-of-way width required should be reduced. Minor collector streets can be designed with narrowertravel lanes and wider landscape strips or sidewalks to help reduce speeds. Local streets will have a right-of-way requirement of 60 feet and should include five-foot wide sidewalks on both sides of the street. Requirement of adjacent landscape strips and parking on one side may be made at the discretion of the city, although right of way should be acquired in any case for utility easements. Other Considerations The availability of streetscape treatments such as landscape strips, pedestrian refuges and bike lanes will prove valuable to the city as instruments by which the character of roadways can be influenced. Streetscape treatments such as street trees can be used to reduce the perceived impact a roadway has on the community. Narrower streets or streets that have a "skinny" feel due to the presence of closely spaced trees or buildings that are designed with minimal setback may also be desirable in some neighborhood areas for use as a deterrent to through or speeding traffic on local streets. Special consideration for school zones is necessary and require reduced speed limits during the hours when children are going to and fiom school and during special events. Usually school speed zone signs are used and complimented by flashing beacons and pavement markings that make drivers aware of the school zone. Kittelson & Associates, lnc. 60 t 94' ROW (48 - 74' CURB TO CURB) I LANDSCAPE BIKE MEDIAN PLANTER BIKE UNDSCAPE SIDCWAK STRIP LANE TRAVEL LANES OR TURN LANE TRAVEL LANES LANE STRIP SIDEWAK 5' 5' 6' 12' I 12' I 12-14' 12' I 12' 6' 5' 5' 82' ROW (32-62' CURB TO CURB) BIKE LANDSCAPE BIKE UNDSCAPE SIOWALK STRIP PARKING UNE TRAVEL LANE TURN UNE TRAVEL UNE UNE PARKINC STRIP SIOWALK MAJOR COLLECTOR t 60' ROW (30-40' CURB TO CURB) UHDSCAPE UNDSCAPE SIDWALK STRIP PARKING TRAVEL LANE TRAVEL LANE PARKING STRIP SIDWAK MINOR COLLECTOR 60' ROW (20-40' CURB TO CURB) LANDSCAPE TRAVEL TRAVEL UHDSCAPE SIDWALK STRIP PARKING LANE LANE PARKING STRIP SIOWALK LOCAL (RESIDENTIAL) * - OPTIONAL NOTES: 10' sidewalks may be requested in commercial districts per Estocodo subdivision ordinances 11' trod lones minimum for minor collector a 4' right of woy eosement is required for locol streets if trove1 lanes ore only 10' wide FIGURE 22 STREET DESIGN STANDARDS May 1999 Transportarlon System Pian City of Estacada Draft Transportation System Plan Section 5 ODOT Access Management Standards The 1991 Oregon Highway Plan specifies an access management classification system for state facilities and has classified Highway 2 1 1-224 as being of a District Level of Importance (Category 5). The pending revisions to the Oregon Highway Plan (1999 edition) are expected to maintain the District Level of Importance classification along Highway 2 1 1-224. Although ~stacada designate the state highwa& - as arterial roadways within their transportation system, the access management categories for these facilities should generally follow the guidelines of the c&knt Oregon Highway Plan. Future A developments along Highway 2 1 1-224 (zone changes, comprehensive plan amendments, redevelopment, - and/or new development) will be required to meet the current Oregon Highway Plan Level of Importance and Access Management policies and standards. Variance Process Access variances may be provided to parcels whose highway frontage, topography, or location would otherwise preclude issuance of a conforming pennit and would either have no reasonable access or cannot "a obtain reasonable alternate access to the public road system. In such a situation, a conditional access A permit may be issued by ODOT and the City of Estacada for a single connection to a property that cannot be accessed in a manner that is consistent with the spacing standards. The permit should carry a condition that the access may be closed at such time that reasonable access becomes available to a local public street. Approval condition might also require a given land owner to work in cooperation with adjacent land owners to provide either joint access points, front and rear cross- I over easements, or a rear-access upon future redevelopment. In addition, approval of a conditional permit might require ODOT-approved turning movement design standards to ensure safety and managed access. 1 City Standards for Access Management Table 5 identifies recommends minimum public street intersection and private access spacing standards I for the City of Estacada roadway network as they relate to new development and redevelopment. Table 6 identifies standards for private access driveway widths. In cases where physical constraints or unique .-. site characteristics limit the ability for the access spacing standards listed in Table 5 and Table 6 to be met, the City of Estacada should retain the right to grant an access spacing variance. County facilities , -i within the city's urban growth boundary should be planned and constructed in accordance with these street design standards. Table 5 Minimum Intersection Spacing Standards Kittelson & Associates, lnc. 62 Functional Classification Arterial Major Collector Minor Collector Local Public Street (feet) 1,320 600 300 1 50 Private Access Drive (feet) - - - -- 500 150 100 50 May 7999 ;iansporrarion sysrern ?/an City of Estacada Draft Transportation System Plan Section 5 1)mily Residential 1 Table 6 Private Access Driveway Width Standards A variance process similar to that described above for the ODOT access management plan should consider land use needs on a case-by-case basis during development review. Maximum (feet) 24 Land Use Sinole Familv Residential -- - Commercial l ndustrial Management Techniques From an operational perspective, the City of Estacada should consider implementing access management measures to limit the number of redundant access points along roadways. This will enhance roadway capacity and benefit circulation. Improvements that should be considered include: Minimum (feet) 12 planning for and developing intersection improvement programs in order to regularly monitor intersection operations and safety problems; 30 30 purchasing right-of-way and closing driveways; and 40 40 installing positive channelization and driveway access controls as necessary. Enforcement of the access spacing standards should be complemented with the availability of alternative access points. Purchasing right-of-way and closing driveways without a parallel road system andor other - local access could seriously effect the viability of the impacted properties. Thus, if an access managemel approach is taken, alternative access should be developed prior to "land-locking" a given property. As part of every land use action, the City of Estacada should evaluate the potential need for conditioning a given development proposal with the following items, in order to maintain idor improve traffic operations and safety along the arterial and collector roadways: Crossover easements should be provided on all compatible parcels (considering topography, access, and land use) to facilitate future access between adjoining parcels. Conditional access permits should be issued to developments having proposed access points that do not meet the designated access spacing policy andlor have the ability to align with opposing driveways. Right-of-way dedications should be provided to facilitate the future planned roadway system in the vicinity of proposed developments. Half-street improvements (sidewalks, curb and gutter, bike laneslpaths, andor travel lanes) should be provided along site frontages that do not have full-buildout improvements in place at the time of development. PEDESTRIAN SYSTEM PLAN The key objectives in the development of the pedestrian and bicycle system plan was to provide connectivity between activity centers and improve the safety of pedestrians throughout the city. With' Kittelson & Associates. lnc. May 1999 City of Estacada Draft Transportation System Plan the City of Estacada, these activity centers primarily include the post office, commercial businesses within the downtown, the schools, parks, and the existing Riverfront Trail. The street design standards (Figure 22 Roadway Design Standards) ensure that pedestrian facilities are provided in conjunction with all new or substantially reconstructed streets within the city. It is essential that existing sidewalks be connected to new sidewalks as new developments are constructed or as road improvements are made. The opportunity to increase the number of pedestrian trips throughout the city and improve connectivity in the existing system are key strategies for the plan. Sidewalks and other improvements are identified to improve the ability of pedestrians to move about the city and increase the utilization of the network. The most important existing pedestrian needs in Estacada are providing sidewalks on arterials and collectors that provide connectivity to key activity centers. Initial improvements should focus on filling in gaps where sidewalks are discontinuous and improving connections to schools, parks, and other prioritized areas. Figure 23 shows the pedestrian plan overlayed on top of the city street system. The connections recommends in the City of Estacada Parks and Recreation and Open Space Master Plan document are incorporated into the Pedestrian Plan. The Pedestrian Plan aims to improve the existing system by improving links and intersections as denoted on the pedestrian plan. In order to achieve an interconnected walkway network, sidewalks need to be constructed by the city when completing roadway projects and by new development as required in local Transportation Planning Rule regulations. Sidewalks should be constructed on both sides of the street where pedestrian activity is high and out ofdirection travel for pedestrians is undesirable. Sidewalks should be built to current City of Estacada design standards in compliance with the Americans with Disabilities Act (at least four feet of unobstructed sidewalk).I3 Multi-Use Facilities An expansion of the existing Riverfront Trail would increase the accessibility of the recreational areas in the city. A review of the City of Estacada Parks Recreation and Open Space Master Plan indicated that there are several potential connections of interest to the city. The existing right-of-way includes the Springwater rail line right of way which could be used to connect the Timber Park with other parts of the city. The design facilities should include at least 8 feet of paved surface and should have 2 foot shoulders on either side of the path. The width of the path can be narrowed in sections where constructing the width is cost prohibitive. Figure 24 shows the cross section as identified in the Parks Recreation and Open Space Master Plan. Other Pedestrian Amenities Pedestrianways in the central business district require additional consideration because of sidewalk activity and the presence of street furniture and other amenities. Where pedestrian amenities such as street furniture and other items are located on the sidewalk, widths for the sidewalks should be increased to a ten feet cross section at a minimum. A design standard for this arrangement is shown in Figure 25. It is also important to maintain facilities that encourage visibility of the pedestrian in areas where automobile drivers may not expect pedestrians. Pedestrian amenities such as curb extensions, street planters, street lights, and wide sidewalks act as buffers and improve the safety of pedestrians throughout the city. Crosswalks should include striped lanes on the street or surface treated sidewalks that positively delineate the pedestrian route and draw motorists' attention to pedestrians. An example of median crossing treatments is shown in Figure 26. Kittelson & Associates, lnc. 64 FIGURE 23 MULTI-PURPOSE TRAIL RIVERFRONT TRAIL SOURCE: ESTACADA PARKS, RECREATION AND OPEN SPACES PLAN I FIGURE 24 DESIGN STANDARD FOR MUTLI-USE PATHS Estacada Transportation System Plan TRAVEL LANES BlKE LANE ONLY IF TRAFFIC VOLUME I I I BIKE PARKING SIDEWALK LANES BlKE LANE WARRANT OF ESTACADA SOURCE: METRO - CREATING LIVABLE STREETS FIGURE 25 PEDESTRIAN DESIGN FOR COMMERCIAL DISTRICTS Estacada Transportation System Plan OF ESTACAD FIGURE 26 EXAMPLES OF MEDIAN CROSSINGS ON HIGHWAYS Estacada Transportation System Plan I 241 ~\DwGS\FINAL\~~~ DWG May 7999 CiW of Estacada Draft Transportation System Plan Transportation System Plan Section 5 BICYCLE PLAN The Bicycle Plan is intended to establish a network of bicycle routes that connect the city's bicycle generators and provide a safe and effective system of bicycle facilities. Several of the streets within the city are designated Bike Streets. The streets designated as bike streets should be monitored in the future to ensure that a safe environment exists for cyclists. A safe environment for cyclists exists when automobile traffic is less than 3,000 vehicles per day or where speeds are lower than 25 miles per hod. Figure 27 shows the bicycle plan overlaid on top of the city street system. The Bicycle Plan has been developed with the understanding that, as traffic increases on the local street system, the provision of striped on-street bike lanes may be required to maintain the perceived safety for bicycles within the system and to promote increased ridership. Bicycle routes identified by the City of Estacada Parks Recreation and Open Space Master Plan have also been reviewed and included in the bicycle plan presented in this memorandum. The plan is also intended to complement the Clackamas County Bicycle Master Plan14 where possible. Additional improvements to the bicycle system center around the provision of amenities for cyclists. It is recommended that the city develop a policy that requires bike racks outside of new developments within the downtown. Bike racks should also be added to some of the existing buildings within the city, including the post office, the library, and City Hall. The minimum requirements for bicycle parking spaces presented in the Oregon Bicycle and Pedestrian Plan should be reviewed during development review by the city to encourage bicycle use and provide opportunity for cyclists to secure their bicycles during trips. The Oregon Bicycle and Pedestrian Plan provides appropriate guidelines for the planning and design of bicycle andpedestrian facilities. There are many considerations required in the design ofa bicycle system. The Oregon Bicycle and Pedestrian Plan should be consulted prior to the implementation of any proposed project to address both pedestrian and cyclist issues. PUBLIC TRANSPOF?TATION SYSTEM PLAN Transit service provides mobility to community residents who do not have access to automobiles and provides an alternative to driving for those who do. Transit service should meet the needs both of travelers within the city and those of travelers making trips outside of the community. Background As detailed in the Existing Conditions section, public transportation within the City of Estacada is currently provided by Tri-Met, the Estacada School District, and the Estacada Community Center. While increased usage of these services is desirable, there are no current or pending plans to expand public transportation services to the area in the short-term. Tri-Met has recommended increasing service on the Estacada route as a part of their Transit Choices for Livability1* study. Funding for the increased service would improve the service frequency and overall level of service. Aside from the aforementioned services, for most of the city's residents, private transportation is the only available option to get to the local medical, social, and retail services and the educational and employment opportunities located in adjacent communities. Kittelson & Associates, lnc. 69 FIWRE 27 E SYSTEM P Estaceda Trmportatim System Plan May 1999 City of Estacada Draft Transportation System Plan Transportation System Plan Section 5 Discussions with local agency staff and Transportation Advisory Committee members indicated that the available public transportation services are not as well used as they could be, suggesting that there is a need to create greater awareness of the services among community members. Community input stressed the need for improved service on weekends and expanded service on weekdays. It was Mher observed that the population under the driving age is particularly under-served and, as the community grows in geographic size, their overall accessibility will be diminished. Recommended Service Enhancements Overall, the City of Estacada should continue to monitor the adequacy of the transit service provided to the community and work with Tri-Met to expand service. In addition, two improvement strategies were identified for Wer consideration. First, both the city and Tri-Met should promote a greater public awareness of the available public transit services by providing additional information at City Hall and at the bus shelters. Increased awareness of the park and ride location at the highway would encourage ridership; the addition of signage for the park and ride would improve visibility. Secondly, consideration should be given to coordinating trip requests received at the Community Center neighboring communities such as Molalla. It is recommended that future studies consider the connection Wer. Close coordination between the City of Estacada and adjacent communities is also encouraged and should increase ridership and efficiency through better use of the resources available. Coordinated trips to local community events would likely generate significant interest. Ultimately, if an increased demand for service can be established and documented, additional resources (i.e. funding, equipment) may be pursued through grant applications or other alternative financing sources. RAIL SYSTEM PLAN There is no direct rail service to Estacada. The existing industries are not directly dependent on freight rail service and do not generate sufficient demand to warrant improved access. - MARINE SYSTEM PLAN As previously noted in the Existing Conditions section, the Clackarnas River borders the City of Estacada and serves as a means of recreational transportation. The City of Estacada should actively support the continued presence of boat launches in the area as an effective means of recreational transportation. The creation of multi-use paths and other facilities that promote the multi-modal use of the recreational areas along the shore of the Clackamas River should also be encouraged. AIR TRANSPORTATION SYSTEM PLAN The passenger and freight air transportation demands of the City of Estacada are primarily serviced by a system of four airports owned and operated by the Port of Portland. These airports are designed to meet the needs of commercial aviation and personal and business aircraft for passenger and freight movement. The airports are: c Portland International Airport (PDX) c Hillsboro Airport c Troutdale Airport c Mulino Airport -- Kittelson & Associates, lnc. 71 May 7 999 Citv of Estacada Draft Transportation System Plan Transportation System Plan Section 5 Each airport serves a particular role in the overall air transportation system, and is equipped to cater to different types and volume of aircraft. Regional, national, and international freight cargo and air passenger services are provided at the Portland International Airport (PDX). Located north of the Estacada study area and primarily accessed via 1-205 and Airport Way, PDX provides access for passengers, and cargo fiom the Portland-Metropolitan area to over 120 cities worldwide, including destinations throughout the Pacific Rim. In 1997, a total of approximately 330,000 operations were flown to or fiom this airport. That same year, the airport served a total of more than 12,800,000 passengers fiom regional, national, and international services and 260,000 tons of air cargo was handled. Near-term improvements to PDX air terminal facility are presently under construction, which once completed will provide improved facilities for air travelers through the airport. The existing airport facility has two parallel runways. The Port of Portland reports that relocation of a runway may not be necessary until total annual operations reach approximateIy 500,000. Over the past five years, average annual growth in total operations from Portland International Airport has grown at a rate ofjust over three percent per annurn. Demand projections prepared by P & D Aviation Inc., indicate that by 2020 the airport will be required to serve around 29 million passengers, 823,000 tons of air fieight and 505,000 aircraft operations annually. Based on these demand estimates, the relocation of a replacement runway is likely to be required prior to the 2020 design horizon. The Port of Portland is currently undertaking a master planning process for the development of airport facilities to meet the anticipated future demands. The Mulino airport site was selected for development in 1979 after being determined by the Port of Portland as the best suited option to meeting the needs of the Clackamas County region. Located several miles west of Estacada, this airport offers general aviation facilities and plays an important role as an airport forimall propeller-driven aircraft. The Estacada airport is a private airport within the urban growth boundary that provides landing facilities . for the public. Covered under the Oregon Statute 836.600, the airport is provided protection under state law. The existing aircraft tie downs are used fiequentIy. The hangars are preferred by existing users and are often near capacity. Growth in activity at the airport is likely as the airport adds hangars and supplements services. There is no near-term expansion pIanned for the airport. Future improvements are Iikely to include expansion of the 16-34 runway to 4,000 feet of paved surface and installation of an instrument landing systems (ILS). The airport and the ODOT Aeronautics Division requested an avigation easement agreement from the City of Estacada for the Estacada Airport. This avigation easement should be considered in conjunction with development review. Furthermore, the Oregon statutes require that when a jurisdiction reviews their comprehensive plan an Airport Overlay District is required for the land area surrounding the airport. The City of Estacada should support the continued use and expansion of local and regional air transportation facilities. PIPELINE SYSTEM PLAN No major pipelines within the City of Estacada were identified within the urban growth boundary. The River Mill Dam operates on the Clackamas River east of Estacada and provides power for the region. The dam is operated by Portland General Electric and power generated from the dam is transferred vi- transmission lines to the Estacda Substation that is located on the southeast comer of the Highway 2 1 1 - - -- Kittelson & Assoc~ates, lnc May 1999 Transportation System Plan City of Estacada Draft Transportation System Plan Section 5 224lBroadway intersection. The Farraday-River Mill lines are 57kV lines that cany power to along the river through the Estacada urban growth boundary. IMPLEMENTATION PLAN This section has outlined specific transportation system improvement recommendations as well as a corresponding timeline for implementation of the identified improvements. The sequencing plan presented is not detailed to the point of a schedule identifying specific years when infrastructure should be constructed, but rather ranks projects to be developed within the near-term and long-term horizon periods. In this manner, the implementation of identified system improvements has been staged to spread investment in this infrastructure over the 20-year life of the plan. The construction of roads, water, sewer, and electrical facilities in conjunction with local development activity should be coordinated if the City of Estacada is to develop in an orderly and efficient way. Consequently, the plans recommends in the TSP should be considered in light of developing infrastructure-sequencing plans, and may need to be modified accordingly. SUMMARY OF TRANSPORTATION IMPROVEMENTS The planned transportation improvements in the City of Estacada over the next 20 years, to meet both short- and long-term needs, are listed in Table 7. The projects are listed in order of priority and have been divided into two time periods; 0 to 5 years (near-term improvements) and 6 to 20 years (long-term future improvements). _The roadway improvements are necessary as development and redevelopment of properties occur. Pedestrian and bicycle improvements are implementation measures for the respective plans. The intersection improvements are existing needs, but are not considered immediate at this time. In the future,-these locations should be monitored and if conditions warrant, can be raised on this list to mitigate the safety deficiency. Kittelson & Associates, lnc. 73 May 7 999 Transportation System Plan City of Estacada Draft Transportation System Plan Section 5 II X1 I 6'" Avenue Sidewalks (Wade Street to Shafford I $90,000 / Near-term future Table 7 Summary of Improvement Program 6'" Avenue Sidewalks (Shafford Street to Hill 1 $55,000 1 Near-term future 1- Zman to Cemetery Road Connection 1 $1,000,000 1 As development occurs Alternative Number Estimated Cost* implementation Timeline #4 #5 #6 II X7 Cemetary to Coupland Road Connection Coupland Road to Regan Hill Road Connection Improved Maintenance (Streets/Sidewalks) Main Street Sidewalks (6'" to la' Ave) #8 #9 #lo #I 1 #12 $1,400,000 $1,000,000 $40,00O&ear Restriping City Streets Highway Improvements for pedestrians Extension of 6m Avenue east to Highway - -- #I 3 #14 1 $800,000 ( As development occurs As development occurs As development occurs Annual costs Cemetery Road Sidewalks 2& Avenue Sidewalks 11 #15 $50,000 $1 50,000 $650,000 1 Avenue Sidewalks Highway 21 1-224 (Sidewalk or multi-use path) Industrial Way Extension Near-term Near-term As redevelopment occurs $1 55,000 $60,000 1. Near-term As appropriate $20,000 $620,000 #18 1 #23 I Shafford Street High Schml Ddveway 1 $1 50,000 1 If a problem adses Near-term Long-term future IODOT #16 417 #20 #2 1 #22 Regan Hill-Shafford Street Intersection 4m Avenue - Regan Hill Road Sidewalks I Total funds needed (City improvements) Wade Street Sidewalks Pierce Street Sidewalks (6m Ave to 1 Ave) Highway 21 1 (Sidewalk on one-side) River Mill Road (continuation of existing trail) Hill Way Sidewalks #24 #25 #26 11 Total (Developer, ODOT, and City Combined) 1 $.,425.000* 1 $300,000 $1 60,000 I' I I 'Estimated costs are in 1999 dollars and do not include right-of-way acquisition $75,000 $75,000 Long-term future Long-term future $1 50,000 $270,000 $45,000 Highway 21 1-224 Intersection Improvement Transit System Planning One-way Street Conversion Kittelson & Associates, Inc. 74 Long-term future Long-term future Long-term future IODOT Long-term future Long-term future $200,000 $20,000 $50,000 As warranted IODOT Long-term future As needed May 7999 Transportation System Plan City of Estacada Draft Transportation System Plan Section 5 SUMMARY The adoption and implementation of thls Transportation System Plan will enable the City of Estacada to rectify existing transportation system deficiencies while also facilitating growth in the study area under the population and employment levels assumed in this study. Updates to the transportation system plan should occur as necessary to insure compliance with the Transportation Planning Rule and verification of growth as reported in this study. Kittelson & Associates, lnc. 75 Section 6 Transportation Funding Plan May 7 999 Transpoltation Funding Plan City of Estacada Draft Transpoltation System Plan Section 6 Transportation Funding Plan INTRODUCTION The Transportation Planning Rule (OAR 660- 12-040) requires that the City of Estacada Transportation System Plan (TSP) include a transportation financing program. These programs are to include: 0 a list of planned transportation facilities and major improvements; a general estimate of the timing for planned transportation facilities and major improvements; 0 determination of rough cost estimates for the transportation facilities and major investments identified in the TSP (intended to provide an estimate of the fiscal requirements to support the land uses in the acknowledged comprehensive plan(s) and allow jurisdictions to assess the adequacy of existing and possible alternative funding mechanisms); and, m a discussion of existing and potential financing sources to fund the development of each transportation facility and major improvement (which can be described in terms of general guidelines or local policies). The timing and financing provisions in the transportation financing program are not considered a land use decision as defmed by the TPR and ORS 197.71 2(2)(e) and, therefore, cannot be the basis of appeal under State law. In addition, the transportation financing program is intended to implement the comprehensive plan policies, which provide for phasing of major improvements to encourage infill and redevelopment of urban lands, prior to facilities that would cause premature development of urbanizable areas or conversion of rural lands to urban uses. CIM OF ESTACADA FUNDING HISTORY The Street Fund for the City of Estacada provides an annual budget of approximately $214,000 (based on a three-year average) that is dedicated entirely to the operation and maintenance of the City's transportation facilities. Maintenance and preservation are the major work activities performed on the local street system by the City's Public Works Department. Table 8 shows the various sources of revenue that make up the annual Street Fund budget. The existing funding sources does not adequately address the needs throughout the city. There are several options for the city to consider. The primary goal of the funding plan is to reduce the reliance on special grants and the transfer from the city's General Fund. Kittelson & Associates, lnc. 77 May 1999 Tiansporrat~on Plan City of Estacada Draft Tanspoflation System Plan Section 6 OREGON TRANSPORTATION FUNDING HISTORY Road-Related Funding The most significant portion of Oregon's highway user taxes and fees come from federal fuel and vehicle taxes, state taxes, and general motor vehicle fees. These categories account for 32 percent, 34 percent, and 25 percent, respectively, of all highway user taxes and fees collected in the State. Through the fiscal year 1996, the matching ratio in Oregon for Interstate Funds was: Federal 92.22 percent and State 7.78 percent16. During the 1 9801s, Oregon's transportation budget was bolstered by a series of two-cent annual gas tax increases. At the same time, the Federal Government was increasing investment in highways and public transportation. The situation is different today. The last three Oregon Legislatures failed to increase the gas tax and federal budget cuts are reducing transportation funding available to Oregon. The State Highway Fund is further losing buying power because the gas tax is not indexed to inflation, and increased fuel efficiency of vehicles reduces overall consumption. Nevertheless, fuel taxes are the largest single source of highway revenues at approximately $390 million annually. Weight-miles taxes are the second largest source of revenue to the Highway Fund, at approximately $2 15 million annually. Oregon Highway Trust Fund revenues are distributed among State (60.05 percent), County (24.38 percent) and City (1 5.57 percent) governments to fund their priority road needs. Under the 1997- 1999 legislatively adopted Department of Transportation budget, a total of $2,284 million revenue dollars was identified. Ofthe total available revenue, approximately $3 17 million dollars was allocated to counties and $185 million to cities". Oregon law allows local government, in addition to receiving state highway trust fund revenues, to levy local fuel taxes for street related improvements. Multnomah and Washington Counties, and some small cities (Tillamook, The Dalles, Woodburn) have used this authorization. Several attempts have been made by other jurisdictions, but have not been supported by the local electorate. As few local governments have implemented this option, non-user road revenues tend to be relied upon to supplement the funds received from state and federal user revenues. Other local funding sources have included property tax levies, local , improvement district assessments, bonds, traffic impact fees, road user taxes, general fund transfers, receipts from other local governments, and other miscellaneous sources. Oregon's current fee for cars and other light vehicles weighing 8,000 pounds or less is $30 biennially. Oregon law permits local governments (counties) and governmental entities to impose local option vehicle registration fees. To date, Clackarnas County has not implemented this tax. Cities in Oregon have relied more on transfers from their general funds to support roadway improvements, than have counties. Ballot Measure 5, however, approved by the voters in 1990, reduced the range of funding and financing options available to both cities and counties. Measure 5 limited the property tax rate for purposes other than for payment of certain general obligation indebtedness to $15 per $1,000 of assessed value. The measure further divided the $15 per $1,000 property tax authority into two components: $5 per $1,000 dedicated to the public schools; the remaining $10 dedicated to other local government units, including cities, counties, special service districts, and other non-school entities. The tax rate limitation for cities and counties went into effect in 1992. The school portion of the measure was phased in over a five-year period beginning in FY 1992. In 1996, voters again approved a property tax limitation measure, Ballot Measure 47, which will firther impact the ability of cities and counties to pay for needed infrastructure through historic or traditional means. -- Kittelson & Associates, lnc. 78 May 7 999 Transportat~on P Ian City of Estacada Draft Transportation System Plan Section 6 At the same time that increased growth and increased transportation demands are occurring, cities and counties have lost another traditional source of revenue for infrastructure construction and modernization - timber harvest receipts. Under a 1993 negotiated mitigation plan, federal forest receipts to support county roads are decreasing 3 percent per year. In 1996, counties received 74 percent of their 1986-90 average receipts, and by 2003 they will receive 55 percent of the late 1980s average receipts. Given this funding environment, current funding levels and sources are not adequate to meet the transportation needs of the State, counties, or cities, for the next 20 years. In response to this gap between needs and funding, Governor Kitzhaber organized the Oregon Transportation Initiative to look at statewide transportation needs and to develop a program to address how these needs will be met. Through a public process led by business and civic leaders across the State, findings and recommendations on the state of transportation needs and methods to address those needs was submitted to the Governor in July 1996. A result of these recommendations was the appointment of a committee to develop a legislative proposal to the 1997 Legislature regarding transportation funding. Part of that proposal included a process for identifying a "base" transportation system, with a priority of maintenance, preservation, and operation of a system of transportation facilities and services that ensures every Oregonian a basic level of mobility within and between communities. Other components included provisions for realizing efficiencies resulting from better intergovernmental cooperation (shared resources and equipment, better communication on project needs and definition), and elimination of legislative barriers to more efficient and cost-effective methods of providing transportation services. Unfortunately, the State Legislature was unable to reach consensus on the means to collect and distribute the funds, and the package failed. The current legislature is reviewing a proposal for a 4-cent gas tax increase that includes a $lO/year vehicle registration fee increase. A similar proposal was not passed during the 1997 Legislature. A part of future transportation funding will include identification of relationships and responsibilities relative to delivery of projects and services. In Oregon, the primary state role has been to construct and maintain the state highway system and to assist local government with funding of other modes. The State also has a role in intercity passenger services and airports. This has historically been minor but would grow significantly, if serious efforts were put into intercity transportation improvements. Local governments provide local transit and airport support, in addition to providing maintenance, preservation, and construction for local roads, streets, and bridges. The Federal Internodal Surface Transportation Efficiency Act of 199 1 (ISTEA) began moving decision-making for federal programs to states and this program and other state policies incorporated in the Oregon Transportation Plan (OTP) encourage reassessment of responsibilities and obligations for funding. The Transportation Equity Act for the 2 1" Century (TEA21), passed in 1998, has continued the efforts first initiated by ISTEA. These changing relationships have resulted in two significant issues for State and local governments. First, there is no clear definition of State responsibility. At one time, the State operated on an informal consensus that it should provide one-half the match on federally funded, local, and other projects that served statewide needs. No similar consensus seems to exist today. The State's responsibility for transit, airports, and other local transportation infrastructure and services is not clear. The question of regional equity is raised in considering especially high-cost project needs, such as the Bend Parkway or the Portland area light rail program. Regional equity will probably require consideration of all modes together, because different regions may have different modal needs and financial arrangements. Given this dynamic transportation funding environment, it is clear that local governments need to reassess traditional methods of funding projects and look creatively at ways to meet public expectations of high quality transportation services. - - Kittelson & Associates, lnc. 79 c;& of Estacada Draft Transportation System P/an section 6 Transit Funding Transit service in Oregon has evolved from private development and reliance on user fees for operating revenue, to public ownership with public subsidy for operations. No clear philosophy of the State role ii providing transit services is evident and the State is discussing how it should raise revenue in support of transit. The State has used general funds, lottery funds, stripper well funds, cigarette tax revenue, and other funds at various times to support transit service. These efforts have largely been targeted towards supplying half the required match to federal capital improvement grants. Tri-Met receives funding under the payroll tax that is assessed and paid by employers within their service area. While the state's role in transit funding is limited, the ODOT Public Transit Section does currently administer three public transit funding sources. These include Small City and Rural Transit Assistance (Section 18), the Special Transportation Fund (STF), and Section 16. The Special Transportation Fund is intended for elderly and disabled citizens and is funded through the State cigarette tax. Funding for the purchase of vehicles and equipment for special transportation providers (i.e., servicing the elderly and disabled) is provided through a federal funding program known as Section 16. POTENTIAL TRANSPORTATION FUNDING SOURCES There are a variety of methods to generate revenue for transportation projects. Funding for transportation improvement projects are derived fiom three sources: federal, state, and local governments. Appendix C (Table C-1) provides a summary of federal, state, and local highway, bridge, sidewalk, and bicycle funding programs respectively, which have typically been used in the past. Although property tax is listed as a possible revenue source, the impacts of Ballot Measure 47 severely limit the opportunities for this funding source. Appendix C (Table C-2) presents details of the revenue sources for streets, bridges, sidewalks, and bicycle facilities currently used by cities. The information is summarized by type of facility, and indicates the percent of revenue each funding source represents for all cities in Oregon, likely tiends for the source, known constitutional or other limitations, and their respective rates. A similar list of transportation funding sources for transit projects is included in Appendix C (Table C-3). This is summarized with the general status of each funding source in Table C-4. The City of Estacada is currently reviewing the development of a Transportation System Development Charge (SDC). An SDC would be assessed to new development to help fund the improvement costs identified in the Estacada Transportation System Plan. POTENTIAL FUNDING SOURCES Potential funding sources in the 20-year program are grouped into general categories. This includes potential federal, state, and local funding, where local funding will require institution of a major, new funding source to supplement funds fiom a potential transportation system development charge. This could include added street bonding, local improvement districts, a local gas tax, hotellmotel tax, andlor a street utility fee. A combination of these funding sources could very easily produce the revenue stream necessary to accommodate the 20-year capital improvement needs of the community. The recommended approach is comprised of two primary sources to supplement the existing City Street Fund. Largely because the existing funding is inadequate, a street utility fee is recommended to addres. the existing deficiencies. The principle consideration with respect to the street utility fee is whether the Kittelson & Associates, lnc. 80 May 7 999 Transporratton Funding plan City of Estacada Draft Transportation System Plan Section 6 citizens will support such a fee for maintenance purposes. Just as citizens and businesses pay for water and sewer that supplies a home or business, a fee would be assessed to all businesses and households by the city for maintenance on city streets. The fees are typically based on the amount of use generated by that particular use, which is estimated by national averages based on the land use and the size of the building. This fee is being used in Tualatin and Wilsonville, where it is used effectively to improve the city street system through preventive maintenance. The second part to the recommended funding plan is the addition of a Transportation Systems Development Charge. Transportation SDCs are widely used in high growth cities and counties throughout the State. Most cities in the Portland metropolitan area now use SDCs to improve their city street network and address capacity related deficiencies and growth. A transportation SDC is a sliding scale fee which is charaged all new development to pay for transportation improvements that are needed as a result of the development. The fee is normally based upon the number of vehicle trips generated by the development. Credits are often given for "qualified improvements" made by a developer to an adjacent arterial or collector street which would reduce the SDC charge. ORS 223.297 to 223.3 14 prescribes specific requirements which a SDC must meet to be considered legal. It specifies that a SDC may be used only for capital improvements and defines the range of eligible capital facility improvements (i.e., water, sewer, drainage, transportation, or parks). ORS also defines the method for determining the amount which may be charged by a SDC, the types of eligible projects for funding and annual review provisions. The use of the transportation SDC is a major source of funding for growth- related transportation improvements and can help temper growth related impacts to the transportation system. SDCs remove much of the growth related burdens from the citizens when prepared effectively. - Kittelson & Associates, lnc. Section 7 Land Use Ordinance Modifications May 1999 Land Use Ordinance Modifications City of Estacada Draft Transportation System Plan Section 7 Land Use Ordinance Modifications The purpose of this section is to summarize recommended amendments to the city's codes to implement the TPR. Specific amendments to the Comprehensive Plan and Municipal Code are summarized below. It is stressed that the Oregon Department of Land Conservation and Development is in the process of developing two model ordinances that can assist the city to establish appropriate regulations - a model zoning ordinance for small communities and an infill and redevelopment ordinance. The model zoning ordinance and accompanying guidebook is being developed specifically for small cities with populations - under 10,000. Cities are encouraged to refer to the model ordinance and guidebook for strategies and model code provisions that can be readily adapted, adopted and implemented locally to focus and stimulate urban residential and commercial development. MODIFICATIONS TO THE EXISTING ORDINANCES = x $ f Private Driveways - 9.060 A The ordinance describing the construction standards of private driveways should include a description of the minimum average spacing for private driveways. The following text should be added to support the access management standards for the city streets. I Access Spacing for Private Driveways. All private drives shall be spaced at a distance that insures efficient operation of the transportation system. The spacing guidelines for private drives vary depending on type of street the property abuts. The spacing standards are as follows: 1 Functional Classification Private Access Drive (feet)- 11 Arterial I 500 11 Road (Street) Definition - 10.202.97 The road street definition should be changed to reflect the following text in support of the transportation system planning completed for the comprehensive plan. Major Collector Minor Collector Local A public or private way created to provide vehicular access to one or more lots, parcels, areas of tracts of land, excluding a private way that is created to provide access to such land in conjunction with its use for forestry, mining, or agricultural purposes. 1 50 100 50 1. Arterial: The primary function of arterials is to provide through-movement of traffic, primarily serving automobile mobility, pedestrian, and bicycle needs. Arterials tend to carry significant interurban travel between downtown areas and outlying residential areas. While arterials may provide access to adjacent land, that function is subordinate to the travel service provided to major traffic movements. 2. Major Collector: The primary function of a major collector is to facilitate the movement of city traffic within the urban growth boundary of the city. Collectors should provide limited access to Kittelson & Associates, lnc. 83 May 7 999 iana bse urairiafici. ~vioa~iicai,o~s City of Estacada Draft Transportation System Plan Section 7 commercial properties while maintaining circulation and mobility for users. Bike lanes should be striped where traffic intensity and speed on these facilities warrant consideration or where the street directly connects to a land use which generates bicycle traffic, i.e., a school or park. 3. The primary function of a minor collector is to connect neighborhoods with major collector streets and to facilitate the movement of local traffic. Speeds on these facilities should remain low to ensure community livability and safety for pedestrians and cyclists of all ages. 4. Local streets are intended to provide access to private dwellings and businesses. The local street is characterized by two travel lanes, with on-street parking typically provided on one or both sides. Local streets should be designed to serve pedestrians and the community, as the local street is part of the public realm. 5. Cul-de-sac or Dead End Street: A minor street with only one outlet which provides a vehicular turnaround. 6. Minor Streets: A street designed to provide access to abutting residential property with only incidental service to through traffic. 7. Private Road: A road created by easement. 8. Public Road: A road dedicated for public use. Parking - 10.22X3.b The EstacadaCode requires parking for each zoning code established with section 2 18 of Chapter 10. The parking requirements (minimum spaces required) are excessive and should be reduced to limit the amount of land and dedicated asphalt required for development of commercial and multiple-family residential-developments. The Institute of Transportation Engineers provides guidelines for parkinh supply in their Parking Generation Manual. Shared parking can also be used to minimize the amount of space dedicated to parking. Complimentary uses within the central business district that require parking at different times during the day can share parking spaces under agreements between the property owners. An example of this is in town that works well today is the IGA supermarket and the video store. Recommended residential and industrial parking requirements are shown below. Further consideration should be given to less restrictive parking requirements in section 238 of Chapter 10. The Off-Street Parking Requirements outlined in 10.23 8.17 could refer to the ITE Parking ene era ti on Manual. Section 10.220 10.221 10.222 10.225 10.226 - Kittelson & Associates, lnc. Land Use Low Density Residential Zone R-1 Medium Density Residential Zone R-2 Multiple Family Residential Zone R-3 Light Industrial Zone M-1 Heavy Industrial Zone M-2 Minimum Required One per home One per home One per home 1.6/1,000 sf Per use Recommended 3 spaceslhome 2 spaceslhome 1.5 spaceslunit Per use Per use May 1999 iand Use Ordinance Modifications City of Estacada Draft Transportation System Ran Section 7 Block Length Change maximum block length 10.750.14 to 800 feet and add additional language to encourage shorter spacing between blocks to encourage connectivity. 1. Connections to existing or planned streets and undeveloped properties along the border of a parcel are recommended at 400-foot intervals. 2. The city shall set a maximum block length standard of 800 feet between street centerlines unless the city determines that adjacent layout or topographical features justify, greater length. Airport Overlay Zone Add language to support the protection of the area surrounding the airport as required by ORS 836.600. ACCESS MANAGEMENT AND DEVELOPMENT REVIEW ORDINANCE The following access management and development review language is recommended to be adopted by ordinance to maintain the integrity of the local transportation system. It should be reviewed by Estacada's City Attorney to ensure that all the appropriate references are included. X-X-X Access Management Policy 1. Purpose and Description: The purpose of this requirement is to maintain the State of Oregon Highway Plan level of importance and associated operating standards on Highway 21 1-224 and to develop a standard for access onto arterial, collector, and local streets within the city's urban growth boundary, while maintaining an expedient process for reviewing land uses that may affect these areas. 2. Applisation: The City Planning Commission shall designate all city streets and state highways classified as local, collector, or arterial as an access management roadway. This shallbe known as the Access Management List. From time to time, other streets within the city may be reviewed through the hearing process and added to the List. At a public hearing, evidence shall be presented by appropriate state, local and federal agencies, interested groups, andlor property owners to show that the areas under consideration should be added to the List. The Planning Commission shall determine the economic, social, environmental and energy consequences on the resource site and on any conflicting uses of areas proposed to be added. If the Planning Commission finds that any roadway should be included in this designation, to meet the requirement of the city's Comprehensive Plan or Transportation System Plan, it shall be included in the Access Management List. When a development is proposed along an Access Management roadway, the Planning Director shall review the development to see if it meets the requirements of this subsection. 3. Permitted Uses: Uses and developments permitted outright or conditionally in the underlying zone shall be permitted if they comply with the following standards for gaining access to adjacent roadways. Kittelson & Associates, lnc. 85 May 1999 Land Use Ord~nance Modlf~cations City of Estacada Draft Transporfatlon System Plan Section 7 Criteria for Review and Disposition: 1. The basic access spacing requirements are as follows: cIn OF ESTACADA ACCESS SPACING POLICY * * Spacing measured from centerline to centerline Arterial Collector Local 2. Applicants must submit a preliminary site plan for review by the Planning Director, prior to receiving an access or zoning permit. At a minimum, the site plan will illustrate: Private Access Drive (feet) $* Functional Classification A. The location of existing access point(s) on both sides of the road within 500 feet in each direction for driveway requests on arterials and 300 feet on collector streets. I Public Street (feet) '* * Consistent with Oregon Highway Plan guidelines 1,320 300 1 50 B. Distances to neighboring constructed public access points, median openings, traffic signals, intersections, and other transportation features on both sides of the property including the section of roadway between the nearest upstream and downstream collector. 300 - 500 75 15 C. Number and direction of site-access driveway lanes to be constructed, as well as an internal signing and striping plan D. All planned transportation features on the local transportation system (such as auxiliary lanes, signals, etc.) E. Trip generation data or appropriate traffic studies (See Part 3 for traffic impact study threshold requirements) F. Parking and internal circulation plan G. Plat map showing property lines, existing and required right-of-ways, and ownership of abutting properties H. A detailed description and justification of any requested access variances The site plan should be drawn at a scale no smaller than 1 inch equals 100 feet. The plot should show property boundaries, existing and proposed land uses, existing and proposed transportation facilities, and any other pertinent information that would help identify how the proposed use is compatible with the proposed transportation system. The Planning Director shall (where applicable) refer the request to other agencies or individuals for their review and comment. 3. All land use actions, new developments, andor redevelopments accessing the transportation system will need to provide traffic impact studies to the city and appropriate agencies (Clackamas County andor ODOT) if the proposed land use meets one or more of the following traffic impact study thresholds. A traffic impact study will not be required of a development that does not exceed the stated thresholds. Trip Generation Threshold - 50 newly generated vehicle trips (inbound and outbound) during the adjacent street peak hour Kittelson & Associates, lnc. 86 May 1999 Land Use Ordinance Modificattons City of Estacada Draft Transportation System Plan Section 7 Mitigation Threshold - installation of any traffic control device andlor construction of any geometric improvements that will affect the progression or operation of traffic traveling, entering, or exiting the highway - Heavy Vehicle Trip Generation Threshold - 20 newly generated heavy vehicle trips (inbound and outbound) during the day Trip Generation estimates should be based on the latest addition of the Institute of Transportation Engineers Trip Generation Manual. The city may use alternative data when, in the Planning Director's opinion, the alternative data are more reliable and realistic for a particular development than those identified by the latest Trip Generation Manual. All traffic impact studies will need to be prepared by a registered professional engineer in accordance with ODOT's development review guidelines, unless the city adopts it's own traffic impact study guidelines. It is recommended that the City of Estacada adopt development review guidelines. 4. Upon receiving a development request and information referenced in Parts 2 and 3, the Planning Director or authorized individual shall review the request to determine if: A. The road system is designed to meet the projected traffic demand at full build-out and the functional roadway classification standards are consistent with the proposed use. A. Access points are properly placed in relation to sight distance (i.e., does the driveway location meet both intersection and stopping sight distance requirements), driveway spacing, and other related considerations, including opportunities for joint or crossover access. Entry roads should be clearly visible from the local, collector, or arterial street. B. The design of the building accommodates non-automobile modes by providing ADA accessible pedestrian connections from the building to the existing system and bicycle parking that is accessible. C. The road system provides adequate access to buildings for residents,-visitors, deliveries, emergency vehicles, and garbage collection. D. The frontage of single-family dwelling units is located on interior local streets rather than collectors or arterials when possible. E. The pedestrian path system links buildings with parking areas, entrances to the development, open space, and recreational and other community facilities (i.e., addresses the requirements of the Transportation Planning Rule). F. The site plan provides for potential future crossover or consolidated access, andlor alternative access. G. The Planning Director shall require the applicant to sign and record an access or crossover easement where applicable, prior to issuing final approval. H. Access points not meeting the specified spacing requirements for the facility will require an access variance. The access variance will be reviewed by ODOT for proposed Highway 21 1-224 access driveways and by the City of Estacada for all other facilities within the urban growth boundary. Variances will be allowed under the following conditions: a) The parcel's highway frontage, topography, or location would otherwise preclude issuance of a conforming access point. Kittelson & Associates, lnc. 87 /Way 1999 iana use ~'ranance City of Estacada Draft Transpoltation System Plan Sectton 7 b) Alternative access (cross-over easement, shared, side-street, andor rear access) is not available to a parcel. An approved access variance will provide the parcel with a conditional access permit. The condition; access permit will remain valid until a neighboring (adjacent or across the highway) piece of property goes through a land use action or alternative access is provided. The city, county, or ODOT will then have the right to either relocate the conditional access driveway to align with an opposing driveway, eliminate the access and provide cross-over access, or consolidate the access with an adjacent parcel. 5. Once the city has reviewed the elements identified in Part 4, the city should determine whether the proposed land use action should be conditions with one or more of the following items in order to maintain the existing operation and safety of existing facilities and provide the necessary right-of-way and improvements to develop the future planned transportation system. 1) Crossover easement agreements will be required on all compatible parcels (topography, access, and land use) to facilitate future access between adjoining parcels.2) Conditional access permits will be issued on new developments that have proposed access points that do not meet the designated access spacing policy andor have the ability to align with opposing access driveways. 3) Right-of-way dedications will be required to facilitate the future planned roadway system in the vicinity of the proposed development. 4) Half-street improvements (sidewalks, curb and gutter, bike laneslpaths, andlor travel lanes) should be provided along site frontages that do not have full-buildout improvements in place at the time of development: Definitions: Access: Pi' means of approach to provide vehicular or pedestrian entrance or exit to a property. This ma not necessarily include all movements. Access Classification: A ranking system for roadways used to determine the appropriate degree of access management. Factors considered include functional classification, the appropriate local government's adopted plan for the roadway, subdivision of abutting properties, and existing level of access control. Access Connection: Any driveway, street, turnout or other means of providing for the movement of vehicles to or from the public roadway system. Access Management: The process of providing and managing access to land development while preserving the regional flow of traffic in terms of safety, capacity, and speed. Access Spacing: The distance between access locations, measured from the closest edge of pavement of the first access to the closest edge of pavement of the second access along the edge (either side) of the traveled way. Conditional Access: An access granted to a parcel that will be relocated or eliminated at the time alternative access is provided. Cross Access: A service drive providing vehicular access between two or more contiguous sites so the driver need not enter the public street system. Crossover Easement (Access): A legal agreement that allows for access to one parcel through the access of another. Easement: A grant of one or more property rights by a property owner to or for use by the public c another person or entity. Kittelson & Associates, lnc. 88 May 1999 Land Use Ordmance Mod~ficar~on~ City of Esracada Dratt Transpoltation System Plan section 7 Functional Classification: A system used to group public roadways into classes according to their purpose in moving vehicles and providing access. Joint Access (or Shared Access): A driveway connecting two or more contiguous sites to the public street system. Right-of-way: Land reserved or used for a highway, street, alley, walkway, drainage facility, or other public purpose. Temporary Access: Provision of direct access to the controlled access facility until such time as adjacent properties develop, in accordance with a joint access agreement or frontage road plan. Kittelson & Associates, Inc. 89 Section 8 Transportation Planning Rule Compliance Transportation Planning Rule Compliance In April 1991, the Land Conservation and Development Commission (LCDC), with the concurrence of ODOT, adopted the Transportation Planning Rule (TPR), OAR 660 Division 12. The TPR requires local jurisdictions greater than 2,500 to prepare and adopt a Transportation System Plan (TSP). Outlined below is a list of recommendations (designated by italics) and requirements for a TSP for an urban area with a population between 2,500 and 25,000, and how each of those were addressed in the City of Estacada TSP. The comparison demonstrates that the City of Estacada TSP is in compliance with the provisions of the TPR in advance of their reaching a population of 2,500, DEVELOPMENT OF A TRANSPORTATION SYSTEM PLAN TPR RecommendationslRequirements City of Estacada TSP Compliance Public and interagency Involvement Establish Advisory Committees. Develop informational material. A Citizens Advisory Committee and Technical Advisory Committee was established at the outset of the project. Membership on the Technical Advisory Committee included members of the City, County, and ODOT staff. Membership on the Citizens Advisory Committee included representatives from all facets of the community. Technical memoranda and current status reports of work undertaken and completed by the advisory committee were published and made available to the public throughout the project. Press releases concerning the project and opporfunities for participation at public workshops were published and materials (including report text, charts, and maps) were prepared for review defining critical components of the city's TSP. Schedule informational meetings, review Three meetings were held through the planning meetings and public hearings throughout the process. The meetings were advertised by planning process. Involve the community. ' distribution of meeting notices. Two of the three meetings were followed by Open Houses that were advertised and open to the public. Coordinate Plan with other agencies. Coordination with local government agencies was accomplished by including them on the project mailing list, individual project briefingslmeetings, and participation on the both the Management Team and the TAC. Review Existing Plans, Policies, Standards, and Laws Review and evaluate existing comprehensive The following plans were reviewed as part of the plan. development of the TSP: 1991 Oregon Highway Plan, (June, 1991); 1996 Oregon Bicycle and -- Kittelson & Associates, lnc. May 7999 City of Estacada Draft Transpoflation System Plan 1 Land use analysis - existing land usehacant lands inventory. Review existing ordinances - zoning, subdivision, engineenng standards. Review existing significant transportation studies. Review existing capital improvements programs/public facilities plans. Americans with Disabilities Act requirements. Inventory Existing Transportation System Street system (number of lanes, lane widths, traffic volumes, level of service, traffic signal location and jurisdiction, pavement conditions, structure locations and conditions, functional classification and jurisdiction, truck routes, number and location of accesses, safety, substandard geometry). Bicycle ways (type, location, width, condition, ownership~urisdiction). Pedestrian ways (location, width, condition, ownership/jurisdiction). Public Transportation Services (transit ridership, volumes, route, frequency, stops, fleet, intercity bus, passenger rail, special transit services). Pedestrian Plan; City of Estacada Comprehensive Plan, (1 984); Draft Statewide Transportation Improvement Program (2000-2003). In developing the forecast of transportation needs, an analysis was conducted of current land use designations and land status within the project area to determine the capacity for growth, which would increase demand for transportation services. Population and employment forecasts were prepared for the year 2019 that reflect regional growth prospects and the city's economic role in the region. Estimates of needed housing, commercial, and employment lands were derived from these forecasts. Existing City Subdivision Ordinances, Zoning Ordinances, and Streets Master Plan were reviewed for adequacy in the development of the City of Estacada TSP. Significant transportation studies reviewed as part of the City of Estacada TSP include the above mentioned comprehensive plan and the associated transportation element, the Clackamas County Rural TSP (incomplete), and the City's Parks, Recreation, and Open Space Study. The city does not currently have a capital improvement program in place. The ADA requirements were reviewed and acknowledged as part of the City of Estacada TSP development. An inventory of the existing street network, trafftc volumes, traffic control devices, accident history, and levels of service is provided in Section 2: Existing Conditions. As noted in Section 2: Existing Conditions, there is one existing bicycle path within the City of Estacada. As noted in Section 2: Existing Conditions, there are several existing pedestrian ways within the City of Estacada. A summary of the existing public transportation services is presented in Section 2: Existing Conditions. Kittelson & Associates, lnc. May 1999 Transportatton Pfannmg Rule Compliance City of Estacada Draft Transportation System Plan Section 8 a Intermodal and private connections. A summary of the existing intermodal and private carrier transportation services is presented in Section 2: Existing Conditions. a Air transportation. a Freight rail transportation. Water transportation. a Pipeline transportation. a Environmental constraints. Existing population and employment. 1 Determine Transportation Needs 1 Forecast population and employment Determination of transportation capacity needs (cumulative analysis, transportation gravity model). Other roadway needs (safety, bridges, reconstruction, operationlmaintenance). Freight transportation needs. Public transportation needs (special transportation needs, general public transit needs). a Bikeway needs. a Pedestrian needs. A summary of existing air transportation facilities is provided in Section 2: Existing Conditions. As noted in Section 2: Existing Conditions, there are no freight rail transportation services within the City of Estacada. A summary of water transportation services is provided in Section 2: Existing Conditions. A summary of pipeline transportation services is provided in Section 2: Existing Conditions. There are no known environmental constraints within the City of Estacada. As outlined Section 1: Introduction, the 1997 City of Estacada population is approximately 2,160 persons in the city. This information and employment data cited in Section 3: Future Conditions Analysis, is included in Future Conditions as the basis for the forecasts that were performed for this TSP. Population and employment fore~asts were prepared for the year 2019 that reflect regional growth prospects and City of Estacada's economic role. This information is summarized in Section 3: Future Conditions. Travel demand forecasts were undertaken as part of this project. The methodology for travel forecasting and assumptions used in the transportation model are contained in Section 3: Future Conditions, which presents an analysis of future transportation conditions and identifies capacity needs. Noncapacity related transportation needs are identified and recommended for implementation in Section 5: Transportation System Plan. Freight transportation needs are adequately met via motor carrier freight services. Public transportation needs and recommended improvements are discussed in Section 5: Transportation System Plan Future bicycle and pedestrian improvements are to be made in conjunction with roadway improvements to provide cyclists and pedestrians with full Kittelson & Associates, lnc. IVidy i 333 d dr- .-.- - =, -- -- - - -- CI@ of Estacada Draft Transporlation System Plan Section 8 accessibility to City of Estacada's street system. Plans for these facilities are shown in Section 5: Transportation System Plan. - Develop and Evaluate Alternatives Update community goals and objectives. Goals were established as part of the TSP development (see Section 1 : Introduction). Establish evaluation criteria. Evaluation criteria was established from the study goals and objectives and used to develop the Preferred Alternative presented in Section 5: Transportation System Plan. Develop and evaluate alternatives (no-build system, all build alternatives, transportation system management, transit alternativelfeasibility, improvementsladditions to roadway system, land use alternatives, combination alternatives). Section 4: Alternatives Analysis includes a summary of the land use and transportation alternatives considered and analyzed the TSP. Land uses, roadway alternatives, transportation system management options, bike and pedestrian options were analyzed. Select recommended alternative. A recommended alternative for roadways, bikeways, and pedestrian facilities is contained in Section 5: Transportation System Plan. Produce a Transportation System Plan ~ranspodation objectives and policies. Specific recommendations regarding transportation goals and policies are outlined in Section 5: Transportation System Plan. Streets plan element (functional street classification and design standards, proposed facility improvements, access management plan, truck plan, safety improvements). The streets (roadway) plan element is outlined in Section 5: Transportation System Plan. Public transportation element (transit route service, transit facilities, special transit services, intercity bus and passenger rail). The public transportation element is outlined in Section 5: Transportation System Plan. The bikeway plan is outlined in Section 5: Transportation System Plan, and shown in Figure Bikeway system element. Pedestrian system element. The pedestrian plan is outlined in Section 5: Transportation System Plan, and shown in Figure 27. Airport element (land use compatibility, future improvements, accessibility1 connectionslconflicts with other modes). The airport element is outlined in Section 5: Transportation System Plan. Freight rail element (terminals, safety). There is no rail service available or anticipated to serve the City of Estacada. Water transportation element (terminals). The water transportation element is outlined in Section 5: Transportation System Plan Produce a Transportation System Plan (Continued) Kittelson & Associates, lnc. 94 May 1999 I rarispondrion r~dririir~y- ,ompiidr~ce City of Estacada Draft Transportation System Plan Sectton 8 TransportationSystemManagementelement TSM element not applicable per OAR (TSM). 660-12-020(2)(f) and (g). rn Transportation Demand Management element TDM element not applicable per OAR (TD M). 660-12-020(2)(f) and (g). lmplementation of a Transportation System Plan Plan Review and Coordination rn Consistent with ODOT and other applicable plans. Adoption rn Is it adopted? Implementation Ordinances (faciliti es, services and improvements; land use or subdivision regulations). Transportation financinglcapital improvements program. See Section 5: Transportation System Plan To follow. Included in Section 7: Policies and Land Use Ordinance Modifications. The transportation finance plan is summarized in Section 6: Transportation Funding Plan. Kittelson & Associates, lnc. 95 Section 9 References May 79109 Heferences City of Estacada Draft Transportation System Plan Section 9 References ' Transportation Planning Rule, State of Oregon, Department of Land Conservation and Development, OAR-660- 12- 005(2, 14, and 15). City of Estacada Parks, Open Spaces, & Recreation Master Plan, City of Estacada, 1996. ' Oregon Bicycle and Pedestrian Program, Second Edition, Oregon Department of Transportation, June 1995. Tri-Met Service Schedule, Tri-Met, Portland, Oregon, September 1998. ' Clackamas County Pavement Conditions Categories, Clackamas County, Oregon, 1999. Estacada, Oregon Community Assessment, E.D. Hovee & Company, Rural Development Initiatives, Inc., November 1994. ' Transportation System Planning Guidelines, Transportation Development Branch, Oregon Department of Transportation, August 1995. ITE Trip Generation Manual, 6' Edition, Institute of Transportation Engineers, Washington, D.C., 1998. Highway Capacity Manual, 2"* Edition, Transportation Research Board, 1994. lo Oregon Highway Plan, Oregon Department of Transportation, 199 1. '' Manual of Uniform Traffic Control Devices, 1988 Edition, National Committee on Uniform Traffic Control Devices, Washington, D.C., 1988 l2 Kuntsler, James H., The Geography of Nowhere, Touchstone Book, New York, 1993. l3 Americans with Disabilities Act, Uniform Building Code. l4 Clackamas County Bicycle Plan, Clackamas County, Oregon, 1996. Transit Choices for Livability, Tri-Met, 1998 l6 Oregon Department of Transportation. State Transportation Fiscal and Statistical Data for 1997. September 1998. I' Oregon Department of Transportation. Financial Services Website, http://www. odot.state. or. us/fspublic. May 1999. Kittelson & Associates, lnc. 97 Appendix A Plan/Policy Review May 7 999 City of Estacada Draft Transportation System Plan Pfan/;Poficy Review Appendix A PlanIPolicy Review OREGON TRANSPORTATION PLAN The 1991 Oregon Transportation Plan (OTP) defines Goals, Policies, and Actions for the State over the next 40 years. It provides direction for the coordination of all travel modes and the relationship of transportation to land use, economic development, the environment, and energy use. The OTP further identifies a coordinated multimodal transportation system and a network of facilities and services for air, rail, highway, public transit, pipelines, marine transportation, bikeways, and other modes of transportation. INTERMODAL SURFACE TRANSPORTATION EFFICIENCY ACT (ISTEA) The Intermodal Surface Transportation Efficiency Act (ISTEA) became law in 1991, authorizing federal highway and mass transit programs through September 20, 1997. Congress reauthorized legislation in 1998, under the title TEA 21. ISTENTEA 21 introduced a new and dramatically different focus on the objectives and role of our national surface transportation system: to enhance personal and commercial mobility and improve transportation safety. ISTENTEA 21 promulgated a federal surface transportation policy based on system outputs and performance, on bottom-line measures of the benefits justifying this significant federal investment. The major programs funded under ISTENTEA 2 1 include: m National Highway System Surface Transportation Program Bridge Program Safety There are a number of other programs funded by ISTENTEA 21 including ITS (Intelligent Transportation Systems) and mass transit, but most of them will not apply to the Estacada area. Significantly, ISTENTEA 21 places restrictions on funding that would benefit single occupant vehicles. This has an impact on the future alternatives for Estacada<@146>s transportation system. The findings, conclusions, and recommendations made in these plans have been respected and adhered to wherever possible and will continue to shape the formulation of the Estacada Transportation System Plan. Throughout this plan, numerous references will be made to the recommendations made in these various plans. CLACKAMAS COUNTY TRANSPORTATION SYSTEM PLAN The TSP for rural Clackamas County is currently under development. As such, no findings are available at the this time. ESTACADA COMPREHENSIVE PLAN The Estacada Comprehensive Plan outlines the following transportation objectives: 1. Provide good local access and circulation. 2. Move traffic quickly and safely. 3. Ensure pedestrian safety. 4. Encourage carpooling and bus ridership. Kittefson & Associates, fnc. B- 7 May 1999 City of Estacada Draft Transportation System Plan Plan/Policy Review Appendix A 5. Discourage through-traffic from using residential streets. The Comprehensive Plan classified streets into four categories: Arterial/Collector, Arterial Highway Local, Arterial Local, and Collector. The designations of each roadway facility within the UGB is shown in Figure 4. These designations are unconventional according to current transportation planning practices. For this reason, the designation of each roadway within the UGB was revised as part of the development of the TSP and a new classification system is proposed. MASTER STREET PLAN In 1974, CH2M Hill performed a detailed topographic survey of all of the roadways within the City, which is summarized in the Master Street Plan. The Plan provides information that can be used for future street and storm drainage projects, but does not identify future roadway connections. NEIGHBORHOOD TRAFFIC MANAGEMENT In September 1996, Lancaster Engineering performed a study of existing traffic volumes and speeds on Wade, Zobrist, and Shafford. According to the study, many of the residents perceived that through- traffic uses these streets to bypass congestion and delays on Broadway and Main. According to the report, the average daily traffic volume on each street is less than 500 vehicles per day, which is well within the acceptable limits for a local street. The study reported that the 85th percentile speed was 30 miles per hour on Wade Street , 32-33 mph on Shafford Street, and 24 mph on Zobrist Street. With the exception of Zobrist Street, the 85th percentile speeds are higher than the 25-mile per hour statutory speed zone. The study investigates several potential traffic calming solutions that could reduce speeds on Wade and Shafford and recommends the installation of speed humps on both streets To date, speed humps have not been installed on any streets within the City. ESTACADA SUBDlVlSlON ORDINANCE In residential, industrial, and open space/public facility areas, the City of Estacada requires that a five- foot sidewalk be constructed adjacent to the street gutter. The area between the back of walk and the property line is reserved for utilities and public use. In commercial zones, up to ten-foot sidewalks are required adjacent to the curb. NW ESTACADA INDUSTRIAL AREA TRAFFIC IMPACT STUDY (KITTELSON & ASSOCIATES, INC., 1 998) A transportation impact study was conducted in 1998 to assess the impacts associated with full buildout of the 59-acre Northwest Estacada Industrial Area. The 59-acre industrial area was recently rezoned from Exclusive Farm Use (EFU) to Light Industrial and is located to the northwest of the River Mill Road%ighway 224 intersection in Estacada, Oregon. The owner of an approximately 23.5- acre parcel in the northeast part of the industrial area is proposing to develop the Estacada Industrial Campus. The Industrial Campus is proposed to access Highway 224 via NW Park Avenue, which will be located 1,500 feet north of the River Mill Road intersection. As part of the development of the Industrial Campus, a local street system will be constructed that includes future connections to a conceptual roadway circulation system on the remaining 35.5-acre parcels in the industrial area. The conceptual circulation plan for the site identifies future connections to River Mill Road and Farmstead Road. The key findings of the study include: Access to Highway 224 should be provided to the site via the River Mill Road and the proposed NW Park Avenue intersections, as proposed in the current circulation plan. The proposed NW Kittelson & Associates, lnc. 8-2 May 1999 Plan/Policy Review City of Estacada Draft Transportation System Plan Appendix A 5 Park Avenue meets the access spacing and traffic signal spacing requirements for a categoryK highway, according to the Oregon Highway Plan. A local circulation system should be developed on the 59-acre site to provide for internal connectivity and emergency vehicle access to and within the site. A traffic signal will be warranted at the Highway 224MW Park Avenue intersection when the industrial area builds out. In addition, a northbound left-turn lane and southbound right-turn lane should be constructed at this intersection to minimize conflicts between through and turning vehicles on Highway 224. Advance signing and/or flashing beacons should be installed on the highway to warn drivers of the traffic signal. As the industrial area builds out, the City of Estacada and ODOT should monitor traffic operations at the River Mill Road/Highway 224 to determine when a traffic signal will be warranted at this intersection. :? ESTACADA RESIDENTIAL SUBDIVISION TRAFFIC IMPACT ANALYSIS (KITTELSON & i ASSOCIATES, INC., 1998) Kittelson & Associates, Inc. prepared a traffic impact study for buildout of a 450-unit single family subdivision located east of Cemetery Road and north of Coupland Road in Estacada. The primary findings of the study include: All intersections currently operate at acceptable levels of service. 0 The proposed site is estimated to generate 4,310 daily trips, of which 455 will occur during the weekday p.m. peak hour. The project is to be developed in phases scheduled to be completed in five and ten years, respectively, in which the 180 units associated with Phase I will generate an estimated 180 p.m. peak trips, and the 270 units in Phase I1 will generate 275 trips. With the addition of site-generated traffic from both phases of the development, all study intersections are forecast to operate acceptably in both year 2003 and 2008. The roadways that are used for access have adequate capacity to accommodate the increased traffic demand generated by the proposed development without mitigations. Sight distance measurements at the critical intersections analyzed indicates that sight distance standards are met, based on the prevailing speeds on the roadways. Moreover, Cemetery Road has no obstructions at or near the proposed driveway locations that would limit sight distance. The gravel roadway that currently extends northward from Coupland Road to Phase I of the proposed development should remain clear of obstructions to serve as an emergency access. A breakaway type gate may be considered to limit misuse of this auxiliary roadway during non- emergency times. Concurrent with development of Phase I1 of the proposed development, an additional access to Cemetery Road should be constructed. This access should intersect Cemetery Road at a point where a minimum of 350 feet sight distance is available. There is sufficient capacity on the system to accommodate a maximum of 680 single-family residential units on the subject property, without triggering the need for additional transportation improvements. Kittellson & Associates, lnc. 8-3 Appendix B Level of Service Methodology May 1999 City of Estacada Draft Transportation System Plan Level of Service Methodology Appendix B Level of Service Methodology LEVEL OF SERVlCE CONCEPT Level of service (LOS) is a concept developed to quantify the degree of comfort (including such elements as travel time, number of stops, total amount of stopped delay, and impediments caused by other vehicles) afforded to drivers as they travel through an intersection or roadway segment. Six grades are used to denote the various LOS from A to F.' SIGNALIZED INTERSECTIONS The six LOS grades are described qualitatively for signalized intersections in Table B 1. Additionally, Table B2 identifies the relationship between level of service and average stopped delay per vehicle. Using this definition, LOS D is generally considered to represent the minimum acceptable design standard. Table 61 Level of Service Definitions (Signalized Intersections) -- Average stop delay is in the range of 5.1 to 15.0 seconds per vehicle. This generally occurs with good progression and/or short cycle lengths. More vehicles stop than fqr a LOS A, causing higher levels of average delay. 1 Level of Service A Average Delay per Vehicle Very low average stopped delay, less than five seconds per vehicle. This occurs when progression is extremely favorable, and most vehicles arrive during the green phase. Most vehicles do not stop at all. Short cycle lengths may also contribute to low delay. C Average stop delay is in the range of 15.1 to 25.0 seconds per vehicle. These higher delays may result from fair progression and/or longer cycle lengths. lndividual cycle failures may begin to appear at this level. The number of vehicles stopping is significant at this level, although many still pass through the intersection without stopping. D Average stopped delays are in the range of 25.1 to 40.0 seconds per vehicle. The influence of congestion becomes more noticeable. Longer delays may result from some combination of unfavorable progression, long cycle length, or high volume/capacity ratios. Many vehicles stop, and the proportion of vehicles not stopping declines. lndividual cycle failures are noticeable. E Kittelson & Associates, lnc. B- 1 Average stop delay is in the range of 40.1 to 60.0 seconds per vehicle. This is considered to be the limit of acceptable delay. These high delay values generally indicate poor progression, long cycle lengths, and high volume/capacity ratios. lndividual cycle failures are frequent occurrences. F Average stop delay is in excess of 60 seconds per vehicle. This is considered to be unacceptable to most drivers. This condition often occurs with oversaturation. It may also occur at high volume/capacity ratios below 1.0 with many individual cycle failures. Poor progression and long cycle lengths may also contribute to such high delay values. 1 Most of the material in this appendix is adapted from the Transportation Research Board, Highway Capacity Manuaf, Special Report 209 (1994). May 1999 City of Estacada Draft Transportation System Plan Level of Service Methodology Appendix 8 Table 82 Level of Service Criteria for Signalized Intersections UNSIGNALIZED INTERSECTIONS Unsignalized intersections include two-way stop-controlled (TWSC) and all-way stop-controlled (AWSC) intersections. The 1994 Highway Capacity Manual provides new models for estimating total vehicle delay at both TWSC and AWSC intersections. Unlike signalized intersections, where LOS is based on stopped delay, unsignalized intersections base LOS on total vehlcle delay. A qualitative description of the various service levels associated with an unsignalized intersection is presented in Table B3. A quantitative definition of LOS for unsignalized intersections is presented in Table B4. Using this definition, LOS E is generally considered to represent the minimum acceptable design Level of Service A 8 C standard. Stopped Delay per Vehicle (Seconds) r 5.0 5.1 to 15.0 15.1 to 25.0 Table 83 Level of Service Criteria for Unsignalized lntersections Level of Service Kittelson & Associates, lnc. 8-2 Average Delay per Vehicle to Minor Street A B C D E F Nearly all drivers find freedom of operation. Very seldom is there more than one vehicle in queue. a Some drivers begin to consider the delay an inconvenience. Occasionally there is more than one vehicle in queue. Many times there is more than one vehicle in queue. Most drivers feel restricted, but not objectionably so. Often there is more than one vehicle in queue. Drivers feel quite restricted. Represents a condition in which the demand is near or equal to the probable maximum number of vehicles that can be accommodated by the movement. There is almost always more than one vehicle in queue. Drivers find the delays approaching intolerable levels. a Forced flow. a Represents an intersection failure condition that is caused by geometric and/or May 1999 City of Estacada Draft Transportation System Plan Level of Servtce Methodology Appendix B Table 64 Level of Service Criteria for Unsignalized Intersections 11 ~evel Service I Average Total Delay per Vehicle (Seconds) /I It should be noted that the LOS criteria for unsignalized intersections are somewhat different than the criteria used for signalized intersections. The primary reason for this difference is that drivers expect different levels of performance from different kinds of transportation facilities. The expectation is that a signalized intersection is designed to carry higher traffic volumes than an unsignalized intersection. Additionally, there are a number of driver behavior considerations that combine to make delays at signalized intersections less onerous than at unsignalized intersections. For example, drivers at signalized intersections are able to relax during the red interval, while drivers on the minor street approaches to TWSC intersections must remain attentive to the task of identifying acceptable gaps and vehicle conflicts. Also, there is often much more variability in the amount of delay experienced by individual drivers at unsignalized intersections than signalized intersections. For these reasons, it is considered that the total delay threshold for any given LOS is less for an unsignalized intersection than for a signalized intersection. While overall intersection LOS is calculated for AWSC intersections, LOS is only calculated for the minor approaches and the majofstreet left turn movements at TWSC intersections. No delay is assumed to the major street through movements. For TWSC intersections, the overall intersection LOS is defined by the movement having the worst LOS (typically a minor street left turn). Kittelson & Associates, lnc. 8-3 Appendix C Potential Funding Sources Summary of Roa Program Name Community Development block Grants (CDB G) Table C-1 Estacada Transportation System Plan -Related Transportation Funding Programs: Federal Sources Description Community Development BIockGrants(CDBG)areadministered by theDepartment ofHousing and Urban Development (HUD) and potentially be used for transportation improvements in eligible areas. Table C-1 (Continued) Estacada Transportation System Plan Summary of Road-Related Transportation Funding Programs: State Level I II OR Transportation Infrastructure Bank Program Name Traffic Control Projeds Description As a pilot program for the USDOT, the Oregon Transportation Commission has made $10 million available from projects that will not be contracted in FY 1996. The OTIB will make loans for transportation projects and will offer a variety of credit enhancements. Initial loans must be for improvements on federal aid highways, repayments go intoan account that will be made available for any mode. Ability to repay will be a key factor in all loans. I The Statemaintainsapolicy ofsharinginstallation, maintenance,andoperationalcostsfor traffic signals and luminaire units at interjections between State highway and city streets (or county roads). lnterjedions involving a State highway and a city street (or county road) which are included on the state-wide priority list are eligible to participate in thecost sharing policy. ODOT establishes a statewide priority list for traffic signal installations on the State Highway System. The priority system is based on warrants outlined in the Manual for Uniform Traffic Control Devices. Local agencies are responsible for coordinating die statewide signal priority list with local road requirements. Program Name Stae Highway Fund Special Public Works Fund (SPWF) Trapor laion Access Chages Immediate @porlunity Fund (1W OR Transportaion Infrastructure Bank Traffic Control Projeds Table C-1 (Continued) Estacada Transportation System Plan Summary of Road-Related Tmnsportation Funding Programs: State Level Fcripti on The Slate Highway Fundcomposedofgas taxes,vehicle registration fees, andweight-mile taxes assessedon kight carrier. In 1994, the shtegas taxwa $0.24 pergdlon. Vehicle registration fees =re $15 mually. Revenues ae divided a follows: 15.57 percent to ciies, 24.38 percent to counties, and 60.05 percent toom. The city share ofthe State Highway Fund isallocated basedon population. ORS 366.514 requires atleastone percentof IheState tlighway Fundreceivedby ODOT, counties andcities beexpended forthe development of footpalhs and bikeways. ODOTadministers the bigcle funds, hdles bikeway plming, design,engineering and conslr~dlon, provides tachnicd assistance and advice to local governments concerning bikeways. The State of Qegon allocates a portion of revenues from the slate lottery Tor economic development. The Oregon Economic Development Depafment provides grank and loans through the SPWF pmgran toconstruu, improve and repair infrastructure to support local aconomic development and create new jobs. The SPWF provides a maximum gmnt of S5OO.lWO for pmjeus Iha will help creae a minimum of 50 jobs. The most faniliar form of a transportaion access chage is a bridge or highway toll. Transportalion accesscharges are most appmpriae for high-speed, Limited access corridors; service in high-hand axridors; and bypass facilities to avoidcongested area. Congestion pncing, here drivers ae charged electronically for the trips they make baedon location and time ofday, is the most efficient policy for dealing will urban congestion. It not only genaates revenue br maintenance and impmvemenb; but dso decreases congestion and the need for capitd iniprovanents by increasing the cost of trips during peak periods. The Qegon RevisedSlalulesallowODOTtoconstructtoll bridges tOCOMed stat highways and improvesafely andcapacity. TheStatws dso allowpnvaledevelopma~t of loll bridges. Recent actions by theOregon legislaure pmvide authority for &eloping toll roads. Stat authority for congestion pricing Qes not exist; new legislaion wuld be required. Fina~ced a level of $5 million per yea to a maximum of $40 million through FY96. 'lhe fund is to support specific economic developments in (Xegon Lhrough the construction and inprovemmt of roads and k restricted for use in situations tha require a quick response andcommitment of funds. It is anticipated that the maximum amount available for a single project is S500,000 or 10 percent of the annual program level. This fund may be used only dm other sources of financial suppor~ are unavailable or insufficient and are not a replacanent or substiute Tor other hding sources. As a pilot program for the USDOT, the Qegon TransportationCommission has made $10 million available from projects tha will not be contraded in FY 1996 The OTIB will make loans for transportaion pmjeds and will offer a variety of credit enhancanents. Initial loans must be for improvements on federal aid highways, repayments go into an account that will be made available for any mode. Ability to repay will be a key hdor in all loans. The Stae maintains a policy of shaing installation, maintenance, snd operaional cosb Tor traffic signals and lurninaireunits at inlersedions beheen Shle highway and city slreets(or mty rods). Intersections involvi$ a Stae highway and a city street (or county road) which are includedon the statewide priority list are eligible to participate in the cost sharing policy. ODOT establishes a statmide priority list for traffc signal installatiom on the Stae Highway System. 'Ik priority syskm k based on warrants outlined in the Manual Tor UnibrmTraffic Control Devices. Local agenciesare rsponsible Tor coordinating the slaewide signal priority list with local road requirtmenis. I Program Name Table C-1 (Continued) Estacada Transportation System Plan Summarv of Road-Related Transportation Funding Programs: Local Sources I Local Gas Tax Local Parking Fees Description Special assessments are charges levied on property owners for neighborhood public facilities and services, with each property assessed a portion of total project cost. They are commonly used for such public works projeds as skeet paving, drainage, parking facilities and sewer lines. The justification for such levies is that many of these public worksadivities provide services to or directly enhance the value of nearby land, thereby providing direct andlor financial benefit to its owners. Local Improvement Diskicts (LIDS) are legal entities established by the City to levy special assessments designed to fund improvements that have local benefits. Through a local improvement diskict (LID), streets or other transportation improvments are constructed and a fee is assessed to adjacent property owners. Systems Development Charges (SDCs) are fees paid by land developers intended to reflect the increased capital costs incurred by a municipality or utility as a result ofa development. Development charges are calculated to include the costs of impactson adjacent areas or services, such as increased school enrollment, parks and recreation use, or traffic congestion. Numerous Oregon cities and counties presently use SDCs to fund transportation capacity improvements. SDCs are authorized and limited by ORS 223.297 - 223.3 14. A local gas tax is assessed at the pump and added to existing state and federal taxes. Tillarnook, The Dalles and Woodbum are Oregon cities that have a local gas tax. Multnomah and Washington Counties also have gas taxes. Parking fees are a common means of generating revenue for public parking maintenance and development. Most cities have some public parking and many charge nominal fees for use of public parking. Cities also generate revenues from parking citations. These fees are generally used for parking-related maintenance and improvements. Table C-1 (Con tin ued) Estacada Transportation System Plan Summary of Road-Related Transportation Funding Programs: Local Sources Program Name Description Street Utility Fee I Most city residents pay water and sewer utility fees. Street user fees apply the same concept to city streets. A fee would be assessed to all businesses and households in the city for use of streets based on the amount ofuse typically generated by a particular use. For example, a singlefamily residence might, on average, generate 10 vehicle trips per day compared to 130 trips per 1,000 square feet of floor area for retail uses. Therefore, the retail use would be assessed a higher fee based on higher use. Street services fees diffa fiom water and sewer fees because usage cannot be easily monitored. Street user fees are typically used to pay for maintenance more than for capital projects. Vehicle Registration Fees Revenue Bonds Counties can implement a local vehicle registration fee. The fee would operate similar to the state vehicle registration fee. A portion ofthe County fee would be allocated to the City. Property Taxes Revenue Bonds are bonds whose debt service is financed by user charges, such as service charges, tolls, admissions fees, and rents. If revenues from user charges are not sufficient to meet the debt service payments, the issuer generally is not legally obligated to levy taxes to avoid default, unless they are also based by the full faith and credit of the insuring governmental unit. In that case, they are Local property taxes could be used to fund transportation, although this is limited by Ballot Measure 5 and 47. I called indirect general obligation bonds. Revenue bonds could be secured by a local gas tax, street I utility fee, or other transportation-related stable revenue stream. Table C-2 ltly Used Revenue Sources For Cities (millions of 1995 dollars) I Curr Revenue Source Ckegon Highway Trust Fund Rate 5 1% of total roador $89. I I Growing about 1.75% per yea. Facility StreetdBridges I Sidewalks/ Bike Lanes Constitutionally limited to kindingactivities that benefit autos & trucks. 24#lgai. Tor gas; $30/biennium registration fee. Varies widely General Fund Transfas Varies widely. Varies but assume growlh @ 3Wyr. 13ul not used by all cities. Special Property Tax Levies May be d for my purpose Increasing, only used by about May be used for purpose 18 aties. I described in election. Varies with construdion cost & local oniinanms. Varies with conslrudion cost & local ordinanms. Rates generally higha in Portland Metm area Improvemmt Iktricl Assessments Varies but increms when local development increases. Varies but increases when local development incream, only used by about 2 dozm cities. Grow mughly wlpopulation and infldion. Varies wlcumnl interest rals. May be used for cunstrudion of adjacent streets-sidewalks. May be d for cunstrudion of new streets. Is a general revenue used by some cities for streets. Have same Constilutional limits as Highway Fund Iiave same Conslilutional limits as Highway Fund Usually cuntributions are relaed to specific development street impacts. Statutorv limit of 5% of Utility Franchise Fees Interest Eanings Used as general street revenue. Used by Tillanoot 7he Dalls, and Woodburn. Negotiated individually. Local Gas Tax Unchanged Private Contributions Varies widely Table C-2: (Continued) Currently Used Revenue Sources For Cities (millions of 1995 dollars) Mi sc. - pemi t fees, finds fines, parking, Motel Tax, other Federal - FHWA+HUD Facility Mi sc. St ate Reverues - mainly Lottery funds. Revenue Source Gradual growth. Impatme (not 1 OW?) General revenues used for streets. Relatiwl y stable Used mainly fa new consbudion wfsome 3-Year Trend Varies widely by City. Based on fedeml allocation to Oregon. Dedication Varies no trend. Rate Varies frm year to year. I 1 Used mainly fa economic development capital improvemat s. I!XEA & General Funds used br consbudion, Geneml Funds used br maintenance & repair. Specific prts to individual cities each year. Varies from year to year. Table C-3 Estacada ~rans~ortation's~stem Currently Used Revenue Sources in Oregon Transit Service TypeIFunction Funding Source Status Urban Public Transpatation (Portland & Eugene) (operating &capital) I. Local Payroll Tax - operating 2. Federal grants - capital 3. Federal grants - operating 4. Fam & adxrt ising I. Maja Souce - $100 milliodyr. Growing - Sensitix to Eccnomic Conditions 2. Maja souce- $IOmilliodyr - Stable 3. Mmr source - $5 milliodyr - Declining 11 4. Mmr source - Growing wlrideship Urban Public Transpatation I. Property tax (typically a taxhe or stand-alone I. Maja Sowce - Growing Slowly (Salem, Corvallis, Medford, K-Falls) levy w/in$lO cap for local gw't services) 2. Maja Souce - $2 millicdyr. - StaMe 2. Federal grants - capital 3. Maja Souce - $2 millicdyr. - Declining 3. Federal grant - operating 4. Mmr Source - Growing wlrideship 4. Fam & adxrtising Small City & Rural (Astoria, Union County, etc.) (operating &capital) I. Federal grants - capital & operating 1. Maj; SOW - Declining 2. Local Property Tax (typically wlin city or 2. Maja Souce - Stable county operating levy) 3. Mmr Source- Stable 3. Fam, dcnations & advertising - -- - Mobility fa Senios & People with I. Special Transportah Fund (2# state cigarette 1. Maja Solrce - $5 millicdyr. - Declining Disabilities - (operating & capital) tax) - operating & capital 2. Maja Souce - Declining 2. Social Service Agency grants I cortracts - 3. Mmr Source- Stable operating 4. Maja Sowce - Declining 3. Local Property Tax (typically wlin city or 5. Mmr - StaMe county operating levy) 4. Federal grants -capital & operating 5. Fam, dcnations advertising Intercity Bus I. Major Interstate Routes: Falles I. Sole Source - Declining (operating &capital) 2. ranch & feeder ro~tes: Private capital, Fares 2. Priwte