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Hall Boulevard-Tualatin Road Corridor Multimodal Connection - June 1995 Draft Technical Report HALL BOULEVARD - TUALATIN ROAD CORRIDOR MULTIMODAL CONNECTION TIGARD, OREGON D� June 1995 Prepared for: City of Tigard, Oregon TABLE OF CONTENTS LIST OF TABLES iii LIST OF FIGURES iv INTRODUCTION 1 CORRIDOR VICINITY 2 CORRIDOR ALIGNMENT OPTIONS 3 TRANSPORTATION IMPACTS AND BENEFITS 4 CURRENT TRAFFIC CONDITIONS 4 FORECAST 2015 TRAFFIC CONDITIONS 6 Without Hall Boulevard- Tualatin Road Connector Roadway 6 With Bicycle/Pedestrian/Transit Connection 7 With 25-Mph Hall Boulevard-Tualatin Road Collector Roadway 8 With 40-Mph Hall Boulevard- Tualatin Road Arterial Roadway 9 BUILD-OUT TRAFFIC CONDITIONS 10 Without Hall Boulevard- Tualatin Road Connector Roadway 11 With 40-Mph Hall Boulevard-Tualatin Road Arterial Roadway 12 STRUCTURAL ANALYSIS OF EXISTING RAILROAD TRESTLE 13 COST ESTIMATES OF IMPROVEMENTS 14 PEDESTRIANBICYCLE FACILITY ALONG THE EXISTING RAIL LINE 14 PEDESTRIANBICYCLE FACILITY PARALLEL TO THE RAIL LINE 14 TWO-LANE ARTERIAL ROADWAY 15 FOUR-LANE ARTERIAL ROADWAY 15 NATURAL RESOURCES 17 INVENTORY 17 POTENTIAL IMPACTS 18 NEED FOR FURTHER ANALYSIS 18 REGULATORY AND REQUIREMENTS IMPLICATIONS 19 REVIEW OF COMPREHENSIVE PLANS OF AFFECTED JURISDICTIONS 20 APPROVAL PROCESS 20 Pedestrian/Bicycle Facility Along the Existing Railroad Corridor 20 Pedestrian/Bicycle Facility Parallel to the Railroad Corridor 21 Arterial Roadway Accommodating Pedestrian,Bicycle,And Vehicular Traffic 21 COMPREHENSIVE PLAN REVIEW 22 City of Durham 22 City of Tigard 24 r ; City of Tualatin 24 Washington County ' 25 APPROVAL PROCESS SUMMARY 26 .,' CONCLUSIONS AND RECOMMENDATIONS 27 APPENDIX—LEVEL OF SERVICE DEFINITIONS This project is partially funded by a grant from the Transportation and Growth Management(TGM) Program, a joint program of the Oregon Department of Transportation and the Oregon Department of Land Conservation and Development. TGM grants rely on federal Intermodal Surface Transportation Efficiency Act and Oregon Lottery funds. The contents of this document do not necessarily reflect views or policies of the State of Oregon. ii LIST OF TABLES No. Title Page 1. CURRENT LEVELS OF SERVICE 5 2. FORECAST 2015 PM PEAK HOUR LEVELS OF SERVICE 7 111 LIST OF FIGURES No. Title Follows Page 1. CURRENT PEAK HOUR TRAFFIC VOLUMES 4 2. FORECAST 2015 WITHOUT HALL-TUALATIN CONNECTOR 6 3. FORECAST 2015 WITH 25 MPH HALL-TUALATIN CONNECTOR 6 4. FORECAST 2015 WITH 40 MPH HALL-TUALATIN CONNECTOR 6 5. REQUIRED LANE CONFIGURATION 7 JUJU iv f, l • JJ _ t INTRODUCTION LTJ ` /1 This report documents the results of our examination of developing the Hall Boulevard - Tualatin Road Corridor as a multimodal regional connection between the cities of Tigard and Tualatin. The southern portion of the corridor is currently occupied by tracks belonging to the Oregon Electric Railway. The northern portion of the corridor is SW 85th Avenue, which is the southerly extension of SW Hall Boulevard south of SW Durham Road. The corridor a� traverses the Tualatin River which is a natural barrier to north-south traffic circulation in the area. Besides the existing railroad trestle along the corridor, the river is crossed by Highway 99W at 1.7 miles to the west and by SW Upper Boones Ferry Road at 0.4 miles to the east of the corridor. The existing railroad trestle and right-of-way have long served as a north-south corridor for travel between Tigard and Tualatin. The railroad right-of-way provides the City an opportunity to convert it for use by other transportation modes. The existing trestle may be suitable for use as a bicycle/pedestrian path, or even potentially for transit use. Alternatively, a new two-lane bridge over the river could serve as a collector or an arterial street for use by general vehicular traffic. The development of the corridor as a multimodal regional connection between Tigard and Tualatin was evaluated based on the following five criteria: 1. an analysis of the transportation impacts and benefits, 2. a structural analysis of the existing railroad trestle, 3. reconnaissance-level cost estimates, 4. an environmental reconnaissance of impacts to natural resources, and 5. a review of potential conflicts between the corridor improvements and the comprehensive plans of the affected jurisdictions. A brief discussion of the evaluation of the multimodal corridor based on the above five criteria is provided in the discussion below. 1 1 CORRIDOR VICINITY South of the Tualatin River crossing, the corridor is bordered by the Tualatin Community Park on the east and the Tualatin County Club on the west. North of the Tualatin River, Durham City Park and the Unified Sewer Agency's Durham Sanitary Sewer Plant border the corridor on the east, and the Thomas Jersey Dairy and Tigard High School border the corridor on the west side. All along the east side of the tracks is an approximately 12 foot wide gravel pathway. (6U U 2 ti CORRIDOR ALIGNMENT OPTIONS Three basic alignment options were considered for a potential connection between Hall Boulevard and Tualatin Road. The first option assumed that the rail line would be removed. The second and third alignment options considered establishing a new transportation corridor parallel with the rail bridge to either the west or the east. The two alignment options which are parallel with the existing rail bridge have the obvious advantage that they do not require discontinuation of rail service or the acquisition of a substantial section of rail road right-of-way. Disadvantages common to both of these alignment options are greater right-of-way acquisition costs from adjacent potentially, property owners and p y, greater environmental impacts to wetlands and other natural resource areas. The alignment option to the east side of the rail line would require substantial acquisition of land from Tualatin's Community Park and from Durham City Park. Both alignment options which seek to preserve the rail line would also have more complicated traffic operations. The parallel option which places a road to the west of the rail line would cause a substantial increase in traffic which would cross the rail line at-grade on Tualatin Road. For example, all of the traffic from downtown Tualatin would have to cross the rail line to get to the new connector leading to Tigard. The parallel option which places a new road to the east of the rail line would avoid some of the traffic-railroad complications at the south end of the corridor, but would trade those for difficulties on the north side of the Tualatin River. A roadway which started on the east side of the rail line in Tualatin Community Park would have to transition to the west side of the line to connect to Hall Boulevard at Durham Road. A grade-crossing on the Tigard side of the Tualatin River would be undesirable and a grade separation would be expensive. In either case, the alignment of the road would need to be adjusted so the crossing occurred at an angle approaching 90 degrees. Adjusting the road alignment to make a right-angle crossing would cause further intrusion into Durham City Park. _ The land acquisition, environmental, wetlands, and traffic impacts would all be difficult and potentially expensive to resolve, but none appears to be an absolute prohibition to the development of the corridor. However, it would be substantially easier, less expensive, and less disruptive if the corridor could be developed following abandonment of the rail line. This report focuses on an alignment option which assumes abandonment of the rail line at some future date. 3 TRANSPORTATION IMPACTS AND BENEFITS Development of the corridor could potentially provide significant transportation benefits, whether it is opened to general vehicular traffic or limited to buses, bicycles, and/or pedestrians. Transportation impacts and benefits were analyzed for two future development scenarios and compared with current traffic conditions. The first of the future scenarios was a 2015 development scenario based on Metro's year 2010 traffic projections. The second future ( ^ scenario was based on build-out of lands in the vicinity of the corridor. The build-out scenario was based on assumptions of dwelling units and employment provided by staff from the Cities of Tigard and Tualatin. Traffic conditions were analyzed at the following major signalized intersections in the study area that would experience a significant change in traffic demand as a result of the Hall Boulevard - Tualatin Road connection: • SW Boones Ferry Road and SW Nyberg Street • SW Tualatin Road and SW Boones Ferry Road • SW Upper Boones Ferry Road and SW Lower Boones Ferry Road • SW Upper Boones Ferry Road and SW Bridgeport Road • SW Upper Boones Ferry Road and SW Durham Road • SW Hall Boulevard and SW Durham Road • SW Tualatin Road and Proposed Hall-Tualatin Connector CURRENT- TRAFFIC CONDITIONS Current traffic volumes at major signalized intersections in the study area during the weekday morning peak period (7:00 AM to 9:00 AM) and during the afternoon peak period (4:00 to 6:00 PM) were obtained from the City of Tigard. These are illustrated in Figure 1. As illustrated in Figure 1, traffic volumes in the study area are generally heavier during the weekday PM peak hour than in the AM peak hour. Between SW Tualatin Road and SW Durham Road, traffic volumes along SW Boones Ferry Road vary between 750 and 1,100 vehicles during the AM peak hour and the traffic volumes vary between 925 and 1,900 vehicles during the PM peak hour. Traffic conditions were analyzed at the major signalized intersections in the study area based on procedures established in the 1985 Highway Capacity Manual (see Table 1). 4 ti LEGEND 00 = AM PEAK HOUR TRAFFIC VOLUME 4 (00) = PM PEAK HOUR TRAFFIC VOLUME aA NTS x � CICO � O DAVID EVANS AND ASSOCIATES, INC. N�N 4� 125 (230) -k CO a5 N X250 (650) i.¢,�.S*- SW DURHAM RD 4 j P 60 (15) tO 4454 .411 } (165) 265 -itt1 1 °'�0`<VC°�\ �J� 0� (400) 640 —+ ' '° g ��.5, ��1q0 6� .b,0 O�T60 O /��0 bb b Q:.5 00\ Sw g D ORT RD 10 (5) 15 ..." NI r/. (5) 20 --ow w,a kA (10) 5- ^c OO� S `6- IL17451 Ss 1'-1 R0 SW TUALATIN RD i .-- 6) FERg las N`,, um} r .- N co 360 (435) (151 `'A 1 L r 145 (200) r cc N t•-•-:S ONOcN .i co l O O 10 (25) ooi�+:° .--925 (790) SW TUALATIN- ) 175 (315) NYBERG RD SHERWOOD RD(110) 110 -I '61 t r (770) 835—► m o al FIGURE 1 (110) 105 `'' " 1 '"0 N CURRENT PEAK HOUR � N ., Ci-• c..1 co ` ' TRAFFIC VOLUMES z °ow c • Intersection operation is expressed as level of service (LOS), a graduating scale of A through F, with A describing'free flow travel conditions and F describing extreme congestion (see Appendix for more detailed LOS definitions). LOS D is generally considered an acceptable condition in urban areas. The LOS for non-signalized intersection operation is a function of the reserve capacity or amount of capacity not used by the traffic demand crossing or entering the main street from a stop-sign-controlled street. TABLE 1 CURRENT LEVELS OF SERVICE Current Traffic Operations INTERSECTION AM Peak PM Peak :D Hour Hour SW Boones Ferry Rd and SW Nyberg Street 1.06 E_ 0.97 E' SW Tualatin Rd and SW Boones Ferry Rd 0.764B 0.57 B SW Upper Boones Ferry Rd and SW Lower Boones Ferry Rd_ N/A _ 0.72 B _ SW Upper Boones Ferry Rd and SW Bridgeport Rd 0.30 A 0.43 A SW Upper Boones Ferry Rd and SW Durham Rd 0.79 C 0.93 D SW Hall Boulevard and SW Durham Rd 0.71 B 0.80B LEGEND: 1. 0.76 B Intersection volume to capacity ratio(v/c)of 76 percent and at LOS B The LOS for signalized intersections is typically defined in terms of delay. According to the 1985 Highway Capacity Manual, delay is a measure of driver comfort, frustration, fuel consumption, and lost travel time'. (See Appendix for more detailed LOS definitions). An additional measure of signalized intersection performance is its capacity. Intersection approach capacity is the maximum rate of flow for the subject approach which may pass through the intersection under prevailing traffic, roadway, and signalization conditions. The amount of capacity utilized by the traffic for the intersection, as a whole, is based upon the lane groups or approaches that have the highest volume to capacity (v/c) ratio. An overall ratio of less than 1.00 indicates that the design, cycle length, and phasing are able to accommodate all critical flows without exceeding capacity. However, a-v/c ratio at or approaching 1.00 is not considered an acceptable condition and is an indication that some roadway improvements may be necessary. The intersection of SW Boones Ferry Rd and SW Nyberg Street is estimated to operate at close to capacity conditions during both the weekday AM and PM peak hours. All other major signalized intersections in the study area are estimated to operate at acceptable levels of service during the AM and PM peak hours; i.e. at less than 95 percent saturation and at LOS D or better during the peak 15-minutes of the peak hour. 'Transportation Research Board,Highway Capacity Manual, Special Report 209(Washington, D.C.: National Research Council, 1985). 5 _ FORECAST 2015 TRAFFIC CONDITIONS Metro's year 2010 traffic model served as the basis for the year 2015 development scenario. Year 2015 was selected to provide a twenty-year planning horizon for evaluation of the corridor. The difference between current (1995) counts and Metro's 2010 traffic volume forecasts were extrapolated to a twenty-year period using an exponential function to account for the annual compounding of traffic growth. Thus, the growth increment predicted in the Metro model was increased by somewhat more than one-third and added to the observed 1995 traffic volumes. Since the weekday PM peak hour carries higher traffic volumes than the AM peak hour, the year 2015 traffic conditions were analyzed for the weekday PM peak hour. Four scenarios were analyzed for the corridor: • Without the Hall Boulevard - Tualatin Road connector roadway (see Figure 2). • With a bicycle/pedestrian/transit connection. • With a 25-mph Hall Boulevard - Tualatin Road collector roadway (see Figure 3). • With a 40-mph Hall Boulevard - Tualatin Road arterial roadway (see Figure 4). The results of traffic operations analysis at major signalized intersections in the study area for the above scenarios are summarized in Table 2. Without Hall Boulevard -Tualatin Road Connector Roadway Without the Hall Boulevard - Tualatin Road connector roadway, traffic service levels will deteriorate at all major signalized intersections in the study area. At the intersection of SW Boones Ferry Rd and SW Nyberg Street, traffic demand during the peak 15-minutes is forecast to be more than 60 percent higher than the ability of the intersection to service that demand. Also, the intersection of SW Upper Boones Ferry Rd and SW Durham Rd and the intersection of SW Hall Boulevard and SW Durham Rd are forecast to operate at close to capacity conditions during the peak 15-minutes of the weekday PM peak hour. Acceptable traffic operations (i.e. v/c ratio less than 0.95 and LOS D or better) can be maintained at the intersection of SW Boones Ferry Rd and SW Nyberg Street by providing an additional through lane and a right-turn lane at the eastbound (EB) and southbound (SB) approaches, a right-turn lane at the northbound (NB) approach, and a second left-turn lane at the westbound (WB) approach. The intersection of SW Hall Boulevard and SW Durham Rd can be maintained at acceptable traffic operation levels by providing an additional through lane at the EB and WB approaches. The intersection of SW Upper Boones Ferry Rd and SW Durham Rd can be maintained at acceptable traffic operation levels by providing an additional WB through lane. It is calculated that without the Hall Boulevard - Tualatin Road connector roadway, these additional lanes will provide for acceptable traffic operations through year 6 A AARAARGD/1F CI'f I AI p d' PUL.CTO ATT./`r,Tc n r.4/lc n 1 r rcrs nr��. r.r.r� .+.................. �. _..__._..,�.. • 1 , 4A NTS x0:1 §)g=_Di& DAVID EVANS AND ASSOCIATES, INC. O .co0 400 4 795 '‘/?0' SW DURHAM RD J 1 R�' 15 �t 190-1 1 t r 69po ��O 4000--0- 'o co o ry,6 cpoV t1p/f c ��8y0 S D ORT RD cozip: .� c).-0 r 1 ' 30� �� OAES 1,0\0' PC 44 SW TUALATIN RD 20 . � r10 �► N 4 485 30 or 520 �* tr ,co 25 o • �� +- 1120 SW TUALATIN— ) 675 NYBERG RD SHERWOOD RD 120 "\ t r FIGURE 2 1270--► N o 0 130, ~ N N FORECAST 2015 PM PEAK HOUR TRAFFIC VOLUMES WITHOUT HALL-TUALATIN z CONNECTOR ROADWAY ox ow .4r-k6- a A NTS .4y , xccl g0 0 DAVID EVANS AND ASSOCIATES, INC. CO b'300 '0 0 Lo 11.5 m M 2 -•--795 i,40" 1 0" SW DURHAM RD i r 20 NS4 400 -0 9 �O 190 J 1 r 6 5 O 35 1 "ate v�'cv rcr O x., \ .Airs\cpo ?DO 9 "S•''FI $ob, 4 4 F 3 a p B D ORT RD <12 o � 6 S 4O J (i 4..e3, x: FFIU r z1W 10 .E ! FZ A.220—.. II S 0 O 30, `��co $OOZE .Io V45g, tsul 11I I (44 SW TUALATIN RD 1 t 70, 000 20J ) 1E► �� �c 10' to to 685--N. b 510 30 x 435 "' fr o Ln 1 rn 155 � to,. +-1120 SW TUALATIN 1 r 600 NYBERG RD SHERWOOD RD 120 J 1 t r FIGURE 3 1270--► N s s 130.E ~ m N FORECAST 2015 PM PEAK A HOUR TRAFFIC VOLUMES WITH 1C4 25 MPH HALL-TUALATIN z CONNECTOR ROADWAY oow caw Arii. I A NTS , xO C ..00 O O DAVID EVANS AND ASSOCIATES, INC. CO 4'0 u)w,o L 226 $� csi N +-795 4444 SW DURHAM RD 1 r 25 �'� i,�� 130 J ' I i .P 5 (5 400--.- N c.4 v bet:\ 4 130 'm it 0 foo � ~� 'ea o if Eye �66... Q QI<. hIA a ¢O ID ORT RD 0 xl�x coon �A� o Flo .1 / r z zW ioJ � rr" W I 220� ao o 30- 4 �N^ R BOD ES o 44o S\14 gR`� 119 SW TUALATIN RDk 120 °o"o" 20 ) � r� o� u,eo lo—� � 650'N ' `540 30 �^, 1 x385 CIr ego O CD 225 Nr iTi +- 1120 570 NYBERG RD SW TUALATIN SHERWOOD RD 120 .J ' N t r FIGURE 4 1270— - a g ig 130� - - FORECAST 2015 PM PEAK A HOUR TRAFFIC VOLUMES WITH x 40 MPH HALL—TUALATIN cn w CONNECTION ROADWAY o x o w MI r.., 2015. The lane modification required to maintain acceptable traffic operations without the Hall Boulevard- Tualatin Road connector roadway are illustrated in Figure 5. TABLE 2 FORECAST 2015 PM PEAK HOUR LEVELS OF SERVICE Without With 25 mph With 40 mph INTERSECTION Hall-Tualatin Hall-Tualatin Hall-Tualatin Connection Connection Connection SW Boones Ferry Rd and SW Nyberg Street 1.63-F 0.97 D 0.97 D SW Tualatin Rd and SW Boones Ferry Rd 0.841 0.90 D 0.91 Cs SW Upper Boones Fey Rd and SW Lower Boones Fey Rd _ 0.93 C 0.89 C _ 0.85 C SW Upper Boones Ferry Rd and SW Bridgeport Rd 0.80 B 0.75 B 0.70 B JUJU SW Upper Boones Ferry Rd and SW Durham Rd 1.00 0.94 D 0.89 D SW Hall Boulevard and SW Durham Rd 0.99p 0.92 D _ 0.96 D SW Tualatin Rd and Proposed Hall-Tualatin Connector N/A 0.81 B 0.81 B LEGEND: 1.0.84 B.=Intersection volume to capacity ratio(v/c)of 84 percent and at LOS B without capacity improvements 2.0.91 C�=Intersection volume to capacity ratio(v/c)of 91 percent and at LOS C with capacity improvements With Bicycle/Pedestrian/Transit Connection As a bicycle/pedestrian pathway, the corridor would serve short-distance non-commuter travel, for example, as a recreation route for bicyclists and joggers in the area. The trestle has long g been used by students from Tualatin attending schools in Tigard, but with the opening of Tualatin High School,this activity appears to have decreased. A bicycle and pedestrian pathway with either exclusive or shared use of the existing railroad trestle would contribute towards meeting Oregon's Transportation Planning Rule (TPR) requirements by providing a more balanced transportation system by reducing the need to use automobiles for short, intra-city trips. The Oregon TPR requires that all four metropolitan areas (including the Portland metropolitan area) reduce the regional per capita vehicle miles traveled (VMT) by 10 percent over the next 20 years. — The traffic volumes in the study area with a new bicycle/pedestrian connection along the corridor were estimated by modeling a 15-mph roadway link along the corridor based on Metro's regional travel demand model. Modeling the link with an assumed speed of 15-mph, which approximates the operating speed of bicyclists, helps evaluate the reduction of travel distance provided the new connection. Based on results from Metro's model, it is estimated that a new bicycle/pedestrian connection along the corridor would have no measurable impact on vehicular travel patterns and traffic congestion in the area. The use of the corridor for bus travel would also have no measurable impact on traffic congestion in the area. Thereby, it is estimated that all of the intersection improvements required without the Hall - Tualatin LEGEND CURRENT LANE CONFIGURATION i a A .e .•ADDITIONAL LANE REQUIRMENTS BY 2015 WITHOUT HALL-TUALATIN CONNECTION x ADDITIONAL LANE REQUIRMENTS BY 2015 WITH 25 MPH HALL-TUALATIN CONNECTION -' ADDITIONAL LANE REQUIRMENTS BY 2015 WITH 40 MPH HALL-TUALATIN CONNECTION IL 49 SW DURHAM RD IN r 44#1 } Nita115 � ly \ ' nit reGre8 W,ULL Vta\.ToacSn ) �4v zl F P". 1> E A -f 4IQ ORT RD • xP9 N i 1,01.° $`14 gg, II IL ? fR TUALATIN RD SW 1 '0- `)it,. <\1/4-• 1Lr t e r r SW TUALATIN- 1 NYBERG RD SHERWOOD RD t FIGURE 5 451' REQUIRED LANE CONFIGURATION w z ox ow CZ 40 (vehicular) connection would also be required with a new bicycle/pedestrian/transit connection along the corridor. With 25-Mph Hall Boulevard - Tualatin Road Collector Roadway Based on Metro's regional travel demand model, it is estimated that 915 vehicles would be diverted to a new 25-mph Hall Boulevard - Tualatin Road collector roadway during the weekday PM peak hour. With the Hal_l - Tualatin collector, it is estimated that traffic operation service levels will improve along SW Upper Boones Ferry Road at its intersections with SW Lower Boones Ferry Road, SW Bridgeport Road, and SW Durham 7c)-V- )- Road. Thereby, the additional WB through lane (required in the case without the Hall - Tualatin connector) would no longer be required at the intersection of SW Upper Boones Ferry Road and SW Durham Road. The new Hall Boulevard - Tualatin Road collector would result in higher traffic volumes, and thereby deteriorate traffic operation service levels, at the remaining three existing major signalized intersections included in the study area. Thus, the higher travel demand at the intersection of SW Boones Ferry Rd and SW Nyberg Street with the provision of the Hall - Tualatin collector would require an additional NB through lane, in addition to all of the improvements that would be required without the Hall-Tualatin connector roadway. At the intersection of SW Hall Boulevard and SW Durham Rd, the higher traffic volumes from the Hall - Tualatin collector NB approach would require a left-turn lane at the NB approach and a right-turn lane at the SB approach. These improvements are in addition to the through lanes required at the EB and WB approaches without the Hall - Tualatin connector roadway. Also, the new intersection of SW Tualatin Road and the Hall-Tualatin collector would have to be modified so as to provide additional turning lanes at the SW Tualatin Road approaches to the intersection. These additional lane requirements by the year 2015, with a 25-mph Hall Boulevard - Tualatin Road collector, for maintaining acceptable traffic operations at signalized intersections in the study area are illustrated in Figure 5. The abandonment of the railroad, with the construction of a new 25-mph Hall - Tualatin collector, would simplify traffic operations at the intersection of SW Boones Ferry Rd and SW Nyberg Street as it would remove railroad traffic interruptions at the west approach to that intersection. Also, the abandonment of the railroad would offer an opportunity to realign and correct the 90 degree turns along SW Tualatin Road, north of its intersection with SW Boones Ferry Road. 8 1 With 40-Mph Hall Boulevard - Tualatin Road Arterial Roadway Based on Metro's regional travel demand model, it is estimated that 1,615 vehicles would be diverted to a new 40-mph Hall Boulevard - Tualatin Road arterial roadway during the weekday PM peak hour. With the Hall - Tualatin arterial, it is estimated that traffic operation service levels will improve along SW Upper Boones Ferry Road at its intersections with SW Lower Boones Ferry Road, SW Bridgeport Road, and SW Durham Road. Thereby, the additional WB through lane (required in the case without the Hall - Tualatin connector) would no longer be required at the intersection of SW Upper Boones Ferry Road and SW Durham Road. The new Hall Boulevard - Tualatin Road arterial would result in higher traffic volumes, and thereby deteriorate traffic operation service levels, at the remaining three existing major signalized intersections included in the study area. Thus, the higher travel demand at the intersection of SW Boones Ferry Rd and SW Nyberg Street with the provision of the Hall - Tualatin collector would require an additional NB through lane and an additional WB right- turn lane, in addition to all of the improvements that would be required without the Hall - Tualatin connector roadway. Also, traffic operations at this intersection would be simplified due to abandonment of the railroad at the east approach. At the intersection of SW Hall Boulevard and SW Durham Rd, the higher traffic volumes from the Hall - Tualatin collector NB approach would require a left-turn lane at the NB approach and a right-turn lane at the SB approach. These improvements are in addition to the through lanes required at the EB and WB approaches,without the Hall-Tualatin connector roadway. At the intersection of SW Tualatin Rd and SW Boones Ferry Rd, additional through capacity needed in the NB direction will require that the existing right-turn lane be modified to permit both through and right-turn movements. Also, the new intersection of SW Tualatin Road and the Hall-Tualatin collector would have to modified so as to provide additional turning lanes at the SW Tualatin Road approaches to the intersection. These additional lane requirements by the year 2015, with a 40-mph Hall Boulevard - Tualatin Road arterial, for maintaining acceptable traffic operations at signalized intersections in the study area are illustrated in Figure 5. The abandonment of the railroad, with the construction of a new 40-mph Hall - Tualatin arterial, would simplify traffic operations at the intersection of SW Boones Ferry Rd and SW Nyberg Street as it would remove railroad traffic interruptions at the west approach to that intersection. Also, the abandonment of the railroad would offer an opportunity to realign and correct the 90 degree turns along SW Tualatin Road, north of its intersection with SW Boones Ferry Road. 9 BUILD-OUT TRAFFIC CONDITIONS Because of concerns expressed by staff from Tigard and Tualatin about Metro's assumptions for future development, another calculation of future traffic was prepared. This was based on build-out of land in parts of Tigard and Tualatin. The population and employment were estimated at build-out for zones in the vicinity of the Hall-Tualatin multimodal corridor. Traffic analysis zones (TAZ's) 333, 334, 347, 363, and 365 in Metro's regional transportation model were considered for this purpose. TAZ's 333 and 334 are within the City of Tigard. They include an area roughly bounded by the Tualatin River to the south, the Southern Pacific Railroad to the east, McDonald Street to the north, and 108th Avenue to the west. The City of Tigard staff estimated the number of households and employment at build-out for TAZ's 333 and 334 based on the adopted City of Tigard Comprehensive Plan. TAZ's 347, 363, and 365 are within the City of Tualatin. They include an area roughly bounded by the Tualatin River to the north, I-5 to the east, Sagert/Avery Street to the south, and 108th Avenue to the west. The City of Tualatin staff estimated the number of households and employment at build-out for TAZ's 347, 363, and 365 based on the adopted City of Tualatin Comprehensive Plan. The estimated build-out population and employment for TAZ's 333, 334, 347, 363, and 365 were then compared with the population and employment assumed for those TAZ's in Metro's 2010 regional transportation planning model. As shown in Table 3, the significant differences between Metro and city projections are in the Tualatin zones rather than the Tigard zones. Based on an average rate of 10 trips per household, 20 trips per employee for retail developments (not including pass-by trips), and 5 trips per employee for industrial development, it is estimated that build-out of the lands in the vicinity of the corridor will add another 73,000 daily trips to the surrounding street system. Assuming that approximately 10 percent of the weekday daily traffic occurs during the PM peak hour, it is estimated 7000 trips will be added to the surrounding street system during the weekday PM peak hour. The distribution of the 7000 additional PM peak hour trips on to the surrounding street system was estimated based on a select zone assignment for TAZ 347 in Metro's regional model. The distribution of traffic from TAZ 363 and TAZ 365 is expected to be similar to that for TAZ 347, especially for the northbound traffic. The distribution of trips from TAZ 347 was estimated for the following two cases: (a) without the Hall-Tualatin Connector Roadway, and (b) with a 40 mph Hall-Tualatin Connector Roadway. 10 TABLE 3 COMPARISON OF DWELLING UNITS AND EMPLOYMENT ESTIMATED DWELLING UNITS AND EMPLOYMENT Traffic Analysis Metro 2010 Projections City of Tigard and City of Tualatin Zone(TAZ) Build-out Projections Number Households Retail Other Households Retail Other Employees Employees Employees Employees 333 1,020 50 670 960 70 1,510 334 2,360 175 220 2,375 14 405 ��� 347 465 345 1,740 425 0 1240 363 850 805 1,840 1,925 4,400 840 365 _ 70 455 _ 2,525 — 0 0 — 5,100 _ Total Households/ 4,765 1,830 6,995 5,685 4,484 9,095 Employees Trip Rate 10 trips per 20 trips per 5 trips per 10 trips per 20 trips per 5 trips per household employee employee household employee employee Number of Daily 47,650 36,600 34,975 56,850 89,680 45,475 Trips TOTAL DAILY 119,225 192,005 TRIPS Without Hall Boulevard - Tualatin Road Connector Roadway The select zone assignment revealed that the traffic generated during the weekday PM peak hour from the area adjoining the Hall-Tualatin Corridor would distribute as follows to the surrounding street system: • 35 percent would travel north/east on Lower Boones Ferry Road to the I-5 interchange, • 10 percent would travel north on Upper Boones Ferry Road, • 18 percent would travel east on Nyberg Road to the I-5 interchange, • 20 percent would travel west on Tualatin Road, • 10 percent would travel west on Herman Road, • 5 percent would travel south on Boones Ferry Road, and • 2 percent would travel west on Tualatin-Sherwood Road. As shown, in the Forecast 2015 Traffic Conditions section of this report, Upper Boones Ferry Road is the critical link in the comparison with the Hall-Tualatin Connector Roadway. With the addition of 700 trips (10 percent of 7,000 PM peak hour trips) to Metro's 2010 traffic volume forecasts, Upper Boones Ferry Road would have to be widened to five lanes to accommodate the projected travel demand. To accommodate this build-out development scenario, extensive improvements (beyond those identified in the Forecast 2015 Traffic 11 • Conditions) would also be required along Tualatin-Sherwood Road, Nyberg Road, and Tualatin Road in the project study area. With 40-Mph Hall Boulevard -Tualatin RoadLArterialRoadway With a 40 mph Hall-Tualatin Arterial Roadway, it is estimated based on a select zone assignment that the traffic generated during the weekday PM peak hour from the area adjoining the Hall-Tualatin Corridor would distribute as follows to the surrounding street system: • 15 percent would travel north on the new connector roadway, �VJV • 30 percent would travel north/east on Lower Boones Ferry Road to the I-5 interchange, • 18 percent would travel east on Nyberg Road to the I-5 interchange, • 20 percent would travel west on Tualatin Road, • 10 percent would travel west on Herman Road, • 5 percent would travel south on Boones Ferry Road, and • 2 percent would travel west on Tualatin-Sherwood Road. Thus, of the 15 percent of the weekday PM peak hour traffic using a new 40 mph Hall- Tualatin Arterial Roadway, ten percent is estimated to be diverted from Upper Boones Ferry Road and the remaining 5 percent is estimated to be diverted from Lower Boones Ferry Road. With build-out of the lands in the vicinity of the corridor, the Hall-Tualatin Arterial Roadway is estimated to carry approximately 1,000 more vehiclesdu_rin_g_the weekday PM peak hour than indicated by Metro's 2010 traffic volume forecast. A four-lane connector road would_be required to handle the estimated 2,650 vehicular trips forecast on the connector roadway during the weekday PM peak hour. The new four-lane arterial roadway would eliminate the need for widening Upper Boones Ferry Road to five lanes to accommodate the increased traff c from the build-out scenario. 12 • STRUCTURAL ANALYSIS OF EXISTING RAILROAD TRESTLE The bridge is approximately 975 foot long and is composed of 55 timber pile trestle approach spans and a 150 foot steel through truss main river span. The trestle spans have a 15 foot wide gravel ballast deck and the truss span is 16 foot clear horizontally between trusses. The bridge and approach fills are approximately 10 feet above the adjacent ground level. There is an overhead power and utility line paralleling the bridge approximately 10 feet to �� the east. Two utility lines (1 - 6 in. diameter and 1 - 3 in. diameter) are attached to the west o side of the bridge. The structure appears to be in good condition with no obvious signs of rot or deterioration of the timber and no indication of damage or corrosion in the steel. Also, the river banks appear to be stable and there are no indication of scour near the bridge. A review of the latest inspection reports or a re-inspection of the bridge should be made prior to making decisions on its future use or life expectancy. 13 COST ESTIMATES OF IMPROVEMENTS The costs were estimated for the following four improvement alternatives: • a pedestrian/bicycle facility along the railroad corridor, using the existing trestle; • a pedestrian/bicycle facility parallel to the railroad corridor; • a two-lane roadway accommodating pedestrian, bicycle, and vehicular traffic, and • a four-lane roadway accommodating pedestrian, bicycle, and vehicular traffic. - PEDESTRIANBICYCLE FACILITY ALONG THE EXISTING RAIL LINE The existing railroad trestle can be converted to either transit or bicycle/pedestrian use by removing the trackway rails and ties, paving over the gravel ballast, installing decking and paving on the truss, and installing either pedestrian railing. It is estimated that this improvement would cost $250,000. PEDESTRIANBICYCLE FACILITY PARALLEL TO THE RAIL LINE A new 16 foot wide pedestrian/bicycle facility parallel to the railroad corridor would require a new bridge crossing over the Tualatin River. It is estimated that the new pedestrian/bicycle bridge would cost approximately $1,300,000. The estimated cost for the new bridge was calculated assuming two 360 foot approach spans at $80 per square foot, and a 250 foot river span at $100 per square foot. The estimated cost of the bridge might decrease if the length of the bridge spans were reduced. However, this may not be possible due to hydraulic requirements in the flood plain. Sections of independent path totaling about 0.7 miles would be required on_both ends of the bridge to tie it to nearby roadways or paths. These sections of the new 16 foot wide pedestrian/bicycle facility would cost an additional $400,000, based on a unit construction of $580,000 per mile. The unit cost of pathway construction is based on an estimate prepared by Tualatin engineering staff in 1992 based on recent project costs. This estimate is somewhat higher than costs listed by the Oregon Department of Transportation for many of its separate bike paths. ODOT's costs range from $273,000 to $923,000 per mile with an average cost of $470,000 per mile. The total cost for providing a new 16 foot wide pedestrian/bicycle facility, parallel to the railroad corridor, is estimated to be approximately $1,700,000. This does not include costs due to any wetland mitigation which might be necessary, and they do not include right-of- way acquisition, engineering and contingency_ costs. 14 TWO-LANE ARTERIAL ROADWAY Alternatively, the corridor can accommodate a two-lane collector or arterial street open to general vehicular traffic. It is estimated that replacing the existing railroad trestle with a new two-lane bridge would cost $4 150,000. The remaining one mile length of the new two-lane s roadway would cost an additional $2,000,000, assuming it could be built at-grade or on an earthen berm. Should hydrologic or environmental factors require a longer bridge or longer approach spans, costs would considerably greater. The cost estimates for the two-lane roadway and bridge structure are based on a 30-foot pavement section with 7-foot sidewalks and a 5-foot clearance on either side. The above cost estimates do not assume any wetland mitigation which might be necessary, and they do not include rght loL w y.-costs. A new two-lane roadway along the corridor would also require modifications to the existing railroad trestle supporting Southern Pacific (SP) rail line running east-west near Tualatin Road. A clear span of at least 54 feet in width would be required to accommodate a two- lane roadway with bike lanes and sidewalks. It is estimated that the improvement to the SP trestle would cost $100,000, if sufficient vertical clearance is available without altering the existing road or railroad grades. A new Hall - Tualatin collector or arterial street open to general vehicular traffic would also require capacity improvements to other intersections in the study area, as discussed in the section of the report on transportation impacts and benefits. The cost estimates were based on a unit cost of$75,000 for every additional through or turning lane at the intersections and a unit cost of$150,000 for each new signal. Based on the above unit cost assumptions, intersection improvements with the new two lane collector or arterial street are estimated to cost an additional $600,000, over and above the cost of intersection improvements without the Hall - Tualatin connector roadway. Thereby, the total incremental cost of providing a two-lane multimodal roadway connection along the Hall - Tualatin corridor is estimated to be $7,200,000, exclusive of right-of-way and, potential wetland..mitigation. FOUR-LANE ARTERIAL ROADWAY As indicated in the section discussing the build-out scenario, a four lane arterial roadway is the appropriate facility if widening of the northern portion of SW Upper Boones Ferry Road is to be avoided. Building a four-lane roadway increases the costs considerably. The cost estimates for the four-lane roadway and bridge structure are based on a 54-foot pavement section with 7-foot sidewalks and a 5-foot clearance on either side. The cost of the bridge would rise to 15 .._...___ ...._ IFz. I $6,150,000. Four-lane approaches to the bridge are estimated to cost at least $1,000,000 more than would two-lane approach roadways. These cost estimates do not assume any wetland mitigation which might be necessary, or right-of-way costs. A new four lane roadway along the corridor would also require modifications to the existing railroad trestle supporting Southern Pacific (SP) rail line running east-west near Tualatin Road. To accommodate a four lane road beneath it, the railroad bridge would need a clear horizontal span of at least 78 feet. Alternatively, multiple spans could be used if the arterial were divided with a median. It is estimated that the improvement to the SP trestle would exceed $150,000. With a four-lane arterial roadway, it becomes increasingly unlikely that )U U sufficient vertical clearance is available without altering the existing road or railroad grades. U U Any change in railroad tracks becomes increasingly expensive due to railroads' low tolerance for grades. LThe cost differential between a two-lane roadway and bridge and a facility with four lanes ceeds $3,000,000. As indicated in the section on the build-out traffic conditions, the four lane section for the connector is an alternative to widening of Upper Boones Ferry Road. Costs associated with that option and for other street improvement needs associated with the build-out scenario were beyond the scope of this study and were not calculated. 16 n cecneoco nn ci•�i.An a. ruc caro nrcr..- .....-..n.-o.....,... -.... _____ ....-.__..._. NATURAL RESOURCES A site reconnaissance was performed on January 24, 1995, to determine if wetlands or other significant natural features occur along an approximately 1.2 mile long north-south corridor. The study area for the environmental reconnaissance of impacts. to natural resources included the segment of the Oregon Electric Railway tracks that runs between Tualatin Rd on the south and SW 85th Street on the north and crosses over the Tualatin River. The corridor is located in Township 2 South, Range 1 West, sections 13, 14, 23, and 24. The reconnaissance involved reviewing existing in-house resource materials, and conducting an on-site visit to determine if wetland indicators discussed in the Corps of Engineers Wetland Delineation Manual (Environmental Laboratory, 1987) were present. According to the manual, an area is determined to be a wetland if there is simultaneous occurrence of hydric soils, a dominance of hydrophytic vegetation, and hydrology specific to wetlands. Wetlands determined on the basis of the Corps of Engineers Wetland Delineation Manual (Environmental Laboratory, 1987) are subject to regulatory jurisdiction by the Oregon Division of State Lands (DSL) and the US Army Corps of Engineers (COE). INVENTORY The National Wetlands Inventory (NWI) map that covers the project area (Beaverton 7.5 minute quad) and the Washington County Soil Survey were examined to assist with the wetland presence determination. The NWI map identified the Tualatin River as a lower perennial riverine, permanent, open water wetland (R2OWZ) and Fanno Creek as a palustrine broad-leaved deciduous forested wetland that is intermittently flooded (PFO 1 W). No other wetlands were identified within the project corridor. The Washington County Soil Survey indicates that six soil series occur on the site: Chehalis, McBee, Quatama, Wapato, Xerochrepts and Haploxerolls, and urban land. The Wapato soil series is classified as hydric by the National Technical Committee for Hydric Soils. The Wapato soil series is mapped as a pocket north of the Tualatin River that is located on both sides of the tracks and a smaller pocket located on the west side of the tracks just north of Tualatin Rd. The City of Tualatin's Goal 5 inventory of significant natural areas and wetlands has located a small wetland west of the railroad tracks and north of the condominiums. The City is in the process of identifying areas that would qualify as"significant"under Goal 5. The database at the Natural Heritage Program was queried for locations of sensitive, threatened, and endangered species and habitats that may be located in the project. There are no records in the project area. 17 Habitat types within 50 feet of either side of the tracks consisted mainly of herbaceous ground cover, with the exception of blackberries (Rubus spp.) and scotch broom (Cytis scoparius) growing along the slopes of the berm south of the Tualatin River. The confluence of Fanno Creek and the Tualatin River is on the east side of the tracks at the bridge crossing. On the east side of the corridor, the riparian areas of both Fanno Creek and the Tualatin River are forested with a mixed deciduous-coniferous forest vegetation. This forested vegetation is at least 50 feet from the tracks. The only forested area adjacent to the tracks is a small pocket of forested vegetation is located on the southwest bank of the Tualatin. This UJU forested area is upland riparian habitat and is part of the Tualatin Country Club. All of the understory has been cleared, and the area appears to be used as a park or picnic area. Wetlands may be present in both pastures located on the west side of the corridor based on the area being mapped as hydric soil and visual observation of ponding. The vegetation was not identifiable given the dormant stage of the vegetation and grazing by cattle. Detailed data plots were not conducted because DEA did not have permission to access private properties adjacent to the tracks. POTENTIAL IMPACTS There are no wetlands within the current railroad right-of-way. If the proposed corridor would be widen outside of the existing railroad right-of-way, wetlands may be present on the west side of the tracks. Both the Tualatin River and Fanno Creek are regulated water bodies by both the Division of State Lands (DSL) and the US Army Corps of Engineers (COE). Any fill placed within the top-of-the bank of the Tualatin River would require coordination with DSL and the COE. The City of Tualatin has designated the Tualatin River and 40 feet on either side of the River as a greenway. Widening of the corridor in this area would require coordination with the City. There are no sensitive species within the existing corridor. NEED FOR FURTHER ANALYSIS If construction activity were proposed which would result in widening of the existing corridor, removal of forest vegetation and riparian vegetation along the Tualatin River and Fanno Creek should be avoided. 18 Prior to preliminary design, a wetland delineation should be performed to determine the extent and location of jurisdictional wetlands and water courses. Wetland delineations are more accurate when performed when the ground water is recharged. This is typically in March through early May. After that period, hydrology must be assumed to be present based on hydrologic indicators. This often, but not always, results in more area delineated as wetland. The wetland delineation process defines precise wetland boundaries that may be legally described and utilized during design and site development. REGULATORY AND REQUIREMENTS IMPLICATIONS cUUU The COE administers Section 404 of the Clean Water Act, which regulates the discharge of dredge or fill materials into waters of the United States, including wetlands. Nationwide Permit 26 under Section 404 allows filling up to one acre of isolated wetland or adjacent wetlands located above the headwaters. However, filling of wetlands is not permitted in documented habitat for federally or state listed endangered, threatened, or sensitive plant or animal species. Water quality certification must be obtained from the Oregon Department of Environmental Quality before the COE will issue a letter of compliance under a Nationwide Permit 26. The COE also authorizes an Individual Permit for more than one acre of fill for these types of wetlands, or for any amount of fill in adjacent wetlands below headwaters. This type of permit is both time consuming and costly, requiring multiple agency review, and an alternative analysis. Any activity that proposes removal, filling, or alteration of more than 50 cubic yards of material within the banks or beds of waters of the State of Oregon (including wetlands) requires a Removal-Fill Permit from DSL. In addition, DSL also requires a mitigation plan that will compensate for the wetland loss. 19 REVIEW,OF COMPREHENSIVE PLANS OF AFFECTED JURISDICTIONS Comprehensive plans of the following affected jurisdictions were reviewed to identify areas where the plans may conflict with corridor improvements: City of Tigard, City of Tualatin, City of Durham, and Washington County. Based on the review, it was determined that although the Comprehensive Plans with the exception of the City of Tigard, do not include a multi-modal facility within the Hall Boulevard - Tualatin Road corridor area, the development of such a multi-modal facility would not be_precluded by Plans. The Tigard Plan contains a notation about a future crossing of the Tualatin River generally within the U JU identified corridor, however, the plan amendment process would be necessary in order to permit a specific facility. The development review and approval processes for a multi-modal facility are generally similar within all of the potentially impacted jurisdictions, and they would not be an obstacle in and of themselves. Three key land use issues would however, be difficult to mitigate. These issues include wetlands and environmentally sensitive areas; floodplain areas on the {' Tualatin River and Fanno Creek; and compatibility with developed public and private recreational uses and linkages. APPROVAL PROCESS The process for gaining approval to develop the multi-modal facility would require a Comprehensive Plan Amendment in each jurisdiction. The process to accomplish the necessary plan amendment is virtually similar in all the affected jurisdictions. Coordination and timing of the amendment process in the individual jurisdictions is critical. An example of the need for coordination is the fact that Tualatin will consider Legislative Plan Amendments on a timely basis as submitted; Washington County .considers Plan Amendments only between March 1 and October 1; and Tigard only twice a year. The following three alternatives are currently being considered: • a pedestrian/bicycle facility along the railroad corridor, using the existing trestle; • a pedestrian/bicycle facility parallel to the railroad corridor; and • an arterial roadway accommodating pedestrian, bicycle, and vehicular traffic. Pedestrian/Bicycle Facility Along the Existing Railroad Corridor A pedestrian/bicycle facility along the existing railroad corridor, using the existing railroad trestle, may require an intergovernmental agreement between the City of Tigard, City of Tualatin, CitY—of Durham, and Washington County. The intergovernmental agreement 20 would identify the ownership and maintenance responsibilities of the bicycle/pedestrian corridor. Alternatively, Washington County could assume responsibility for the entire facility. Pedestrian/Bicycle Facility Parallel to the Railroad Corridor A pedestrian/bicycle facility parallel to the railroad corridor would require an Administrative Type II development permit from Washington County, and it may require "M ni'or'Plan Amendments from the City of Tigard, City of Tualatin, and City of Durham. Any construction activities within the wetlands and floodplain associated with the Tualatin River and Fanno Creek would require a joint application to the U.S. Army Corps _of Engineers and the Division of State Lands (DSL). The Oregon Department of Fish and Wildlife and the U.S, Fish and Wildlife Service would also be involved in the review and approval process due to potential impact on the aquatic and riparian habitats. The joint application would seek to determine that the proposed facility would not have an adverse environmental impact with respect to the following key land use issues: • Significant wetlands and environmentally sensitive areas. • Floodplain areas on the Tualatin River and Fanno Creek. • Compatibility with developed public and private recreational uses and linkages. Development of the pedestrian/bicycle facility may also require an intergovernmental agreement that will identify the ownership and maintenance responsibilities of the bicycle/pedestrian corridor. Alternatively, Washington County could assume responsibility for the entire facility. Arterial Roadway Accommodating Pedestrian, Bicycle,And Vehicular Traffic The development of a roadway facility accommodating pedestrian, bicycle, and vehicular traffic would require a "Major" Plan Amendment from the City of Tigard, City of Tualatin, City of Durham, and Washington Count' Plan Amendment processes within all of the potentially impacted jurisdictions are generally similar to each other, with the exception that Washington County has the most rigorous process for review and approval of a major multi- modal transportation facility. There is no clear procedure in any of the ordinances for the review and approval of a facility being developed jointly within multiple jurisdictions. If this is the case, then each pan amendment would have to be processed independents in each j.urisdicti_on. The process would require extensive coordination and public involvement among the jurisdictions in developing, evaluating, and selecting a preferred alternative. 21 Any construction activities within the wetlands and floodplain associated with the Tualatin River and Fanno Creek would require a joint application to the U.S. Army Corps of Engineers and the Division of State Lands (DSL). The Oregon Department of Fish and Wildlife and the U.S. Fish and Wildlife Service would also be involved in the review and approval process due to potential impact on the aquatic and riparian habitat. The joint application would seek to determine that the proposed facility would not have an adverse environmental impact with respect to the following key land use issues: • Significant wetlands and environmentally sensitive areas. • Floodplain areas on the Tualatin River and Fanno Creek. • Compatibility with developed public and private recreational uses and linkages. 3 C Development of the multi-modal facility may also require an intergovernmental agreement that will identify the ownership and maintenance responsibilities of the bicycle/pedestrian corridor. Alternatively, Washington County could assume responsibility for the entire facility. COMPREHENSIVE PLAN REVIEW City of Durham A portion of the potential corridor is located along the west edge of the City of Durham. The area consists of floodplain and low land areas at the confluence of Fanno Creek with the Tualatin River. Within the City, the area including the potential corridor is designated on the Comprehensive Plan (November, 1987) as Greenway. The following is a listing of those sections of the Plan/Zoning Code which would apply to any "hard" development within the corridor in Durham. Chapter II,Article 3, Section 5- Greenway District(G) A. Purpose and Intent - The purpose of this District is to protect and preserve natural water storage areas, floodplains and drainage way areas and other Greenway areas by discouraging or prohibiting incompatible uses except in those instances where findings may properly be made by the Planning Commission or City Council allowing limited use of such area. B. Uses - Permitted uses, prohibited uses and activities, non-conforming uses, special permits or exceptions, and standards for permitted structures within this District shall be regulated through the procedures described in Chapter V - Greenways. 22 r, ` 1 Chapter V,Article 1, Section 2-Definitions G. "Obstruction" means any dam, wall, embankment, levee, dike, pile, abutment, projection, excavation, channel modification, bridge, conduit, culvert, building, gravel, refuse, fill, structure or matter in, along, or across or projecting into any channel, water course, or floodplain drainage ways areas which may impede, retard, or change the direction of the flow of water, either in itself or by catching or collecting debris carried by such water, or that is placed where the flow of water might carry the same downstream to the damage of health or property. �UvU K. "Greenways" are defined as unbuildable lands and other lands that establish a greenway system that will (a) tie together recreation areas, schools and their service areas; (b) provide protective buffers between incompatible land uses; (c) reduce flood hazard by restricting development along natural drainage ways; (d) provide opportunities for passive recreation activities; (e) afford alternative pedestrian and bicycle circulation routes separated from the street system and motorized vehicles; and (f) preserve the amenity of the area. Chapter V,Article 2, Section 1 -Permitted Uses C. Roadways, bridges or utility structures designed to not significantly impede the flow of floodwaters. Chapter V,Article 2, Section 2-Prohibited Uses and Activities A. Filling. D. Excavating. H. Any change in the topography or terrain which would have a substantial tendency to change the flow of waters during flooding periods or which would increase flood hazard or alter the direction or velocity of the floodwater flow. Chapter V,Article 2, Section 4-Special Permits or Exceptions NOTE: Section 4 establishes the requirements and process for review of those uses requiring permits. Development of a roadway link would be governed by this Section as a minimum. 23 City of Tigard The potential corridor alignment in the City of Tigard consists of developed public (U.S.A. Treatment Plant), public institutional (Tigard High School), and light industrial uses along S.W. 85th Avenue south of the Durham Road intersection. These areas should not present significant obstacles to development of a multi-modal facility. Further south beyond the developed portion of S.W. 85th Avenue, the area within the City of Tigard is designated as Open Space on the Comprehensive Plan. Much of that area is within the floodplain and wetlands associated with Fanno Creek and the Tualatin River. A substantial portion of the Open Space area is overlain with a floodplain designation. This area presents a number of Copotential obstacles to the development of a multi-modal facility. U��J The Tigard Area Comprehensive Pedestrian - Bicycle Pathway Plan identified four priority phases for developing a city-wide pathway system. The link along 85th Avenue from Durham Road over the Tualatin River was classed as a Phase 4 priority. Although the plan does not state why this link was given such a low priority, it was most likely due to the costs and potential problems associated with a crossing of the Tualatin River. There is no specific mention of a multi-modal facility as a permitted use in the residential or light industrial zoning district listings. Section 18.70.030 which lists the permitted uses for the I-L, Light Industrial District cites "Civic use types" as a permitted use but, there is no definition in the Code for "Civic use types". There are four sub-categories listed under "civic use types", a. Public support facilities; b. Parking facilities; c. Postal services; and d. Public safety services. None of these sub-categories specifically fit a multi-modal facility. A notation on the Comprehensive Plan indicates a crossing of the Tualatin River but, does not identify a specific location. This notation has the effect of giving "conceptual" support to a crossing subject to a Plan Amendment identifying and further refinement of a specific location and type of facility. A multi-modal facility would be processed as a special project since it "bridges" both land use and land division issues. Issues such as land use compatibility; access and circulation; project design; environmental impact; and visual appearance would be best handled through a process of public information workshops preceding the Plan Amendment public hearings. City of Tualatin The proposed corridor corresponds generally with the alignment of Tualatin Road north of Boones Ferry Road along the boundary between Neighborhood Planning Areas (NPA) 1 and 6. The area within NPA 1 is designated Park/Greenway and is developed as Tualatin Community Park. This park is the site of the annual Crawfish Festival and experiences extensive use at all times of the year due to its location on the Tualatin River. 24 4 ." • 1 On the west side of the potential alignment is an area in NPA 6 which is designated RL-Low Density Residential(1-5 dwelling units per acre). Approximately 134.08 acres of this area is developed as the Tualatin Country Club golf course. Development of a golf course is permitted as a conditional use on land zoned for low density residential land uses. At the north end of the corridor is the Tualatin River. The Transportation Plan shows only two crossings of the Tualatin Ricer within the city. One is the Highway 99W crossing located at the northwest edge of the city, and the other is the Boones Ferry Road crossing north of the downtown. Although there is some general wording in the plan addressing continuity, crossing of the river, and pedestrian/bicycle links, F)>U n_ there is no specific mention of any type of crossing in the vicinity of this corridor. Due to the existing passive and active recreation resources, and the wetlands-and..floodplain associated with the Tualatin River, it would be extremely difficult to develop a multi-modal facility within the proposed corridor alignment. A Comprehensive Plan Amendment would be necessary to include a crossing of the Tualatin River as a major component of the transportation element. Although building a facility is not prohibited by the plan, zoning, or the overlying special zones, the recreational, environmental, and floodplain issues as well as the lack of specific identification of such a facility in the plan would need to be addressed when evaluating the cost/benefit of the facility. Such an evaluation would probably render serious consideration of the corridor impractical. However, a much lower intensity non- motorized vehicle connection serving pedestrians and bicyclists would provide for a crossing of the Tualatin River. -- Washington County The portion of the corridor area within unincorporated Washington County is designated on the county plan for industrial uses, however, the majority of the area is within the floodplain and wetland area on the west bank of the Tualatin River. Since a multi-modal facility is a major transportation facility Washington County requires a complex review to provide the broadest possible community input. In addition, the County Transportation Plan does not identify an arterial facility within the corridor area. Approval for the development of a multi-modal facility and, in essence, an amendment to the Transportation Plan would be subject to the standards, process, and procedures identified in Article VII,Public Transportation Facilities, for Category B Uses. This process requires a rigorous alternative alignment analysis including a description of citizen involvement, criteria used to select the alternative alignments, a description of anticipated impacts of alternative alignments, and a description of the rationale for the proposed alignment with potential mitigation measures. The process and requirements are virtually identical to those required for federal highway projects. 25 D ACh.fDCD!lC CI'fl AID '�' TLYC CTD STC!`•/"Tr...rr r.r^�nrn�..n,' ,' ^'- • APPROVAL PROCESS SUMMARY Development of any one of the three alternatives will require legitimization through the Comprehensive Plan Amendment process in each affected jurisdiction. The following is a summary of how the process would be handled in each of the jurisdictions. • Legislative and quasi-judicial Comprehensive Plan Amendments in Tualatin are processed at any time of the year on a timely basis as applications are received. • Legislative Comprehensive Plan Amendments in Tigard are processed twice a year in April and October. Quasi-judicial Plan Amendments are processed at any time of the UOU year on a timely basis. • Legislative Comprehensive Plan Amendments in Washington County are processed between March 1 and October 1. Quasi-judicial Plan Amendments are processed at any time of the year on a timely basis. 26 A MFAARCDnG CI'f1AlP 41,_TI4T CTD AT[:(:1/`Tc k• ..rrrr[n.rnarc ............. ...... ....�. _..-_ -'- CONCLUSIONS AND RECOMMENDATIONS The Hall Boulevard-Tualatin Road corridor has some obvious complications ranging from environmental, wetlands, land acquisition, park impacts to traffic operations, construction, and financing. Abandonment of the rail line, should that ever occur, would make it easier to • resolve some of the complications. That would make traffic operations and roadway design issues easier at both ends of the corridor and might reduce land acquisition costs, as well as potentially reducing the impact on parks and wetlands. A bicycle and pedestrian connection might even be developed using the existing trestle and bridge if the rail line were removed. P)) 'cULU Based upon the modeling performed by Metro, it appears that the Hall Boulevard-Tualatin Road corridor would be used if a facility were provided. The amount of use would depend both on the type of facility and upon the amount of development which occurs in the area. A low-speed facility, such as a local or collector street would attract relatively modest amounts of traffic because it would offer slight time savings relative to existing alternative routes, such as Boones Ferry Road, the nearest river crossing. Based on the Metro modeling, a higher-speed arterial crossing which would provide a more direct connection between Tualatin Road and Hall Boulevard would attract considerably more traffic due to its shorter travel path and the time savings it would offer. The key factor in determining the value of the potential Hall Boulevard-Tualatin Road connector is the amount of development which will occur. The assumptions related to future development in Tualatin have a significant impact on future traffic volumes. The year 2010 assumptions used by Metro in its modeling vary significantly from those of the City of Tualatin. Year 2015 traffic forecasts derived from Metro's traffic modeling for year 2010 showed that a two-lane roadway in the Hall Boulevard-Tualatin Road corridor would provide adequate capacity. Based on Metro's modeling, several intersections in the study area would require improvements to maintain an acceptable peak hour level of service. The Hall Boulevard- Tualatin Road connection would have mixed impacts. In some locations, such as intersections on Tualatin Road, the facility creates a need for additional turn lanes. At others, such as the intersection of Durham Road and Upper Boones Ferry Road, the connector eliminates the need for a turn lane on one approach. The potential Hall Boulevard-Tualatin Road connector does not eliminate the need for any major, expensive improvement. When evaluated in the context of etro's jnodeling, Upper Boones Ferry Road is not expected to be overloaded. Thus, the4Hall Boulevard-Tualatin Road facility would provide added capacity in the area rather than serving as an alternative to a needed improvement. 1. 27 Future traffic volume forecasts based on a build-out of lands in the vicinity of the Hall Boulevard-Tualatin Road corridor present a very different picture. Particularly on the Tualatin side of the river, a build-out scenario produces much higher traffic volumes than does one based on Metro's_assumptions. Many existing roadways and intersections in the area will likely experience considerable peak hour congestion. Extensive improvements to many roads in the area would likely be necessary to maintain an acceptable peak hour level of service. Upper Boones Ferry Road, the key facility which serves as the present day alternative to the Hall Boulevard-Tualatin Road connector, is expected to be overloaded. Its existing three lane cross-section would not be expected to provide adequate capacity to accommodate a build-out land use scenario. A four lane Hall Boulevard-Tualatin Road �E)U U connection would serve as a substitute for at least one potential project -- the widening of Upper Boones Ferry Road to a five-lane cross-section. Thus, future land use and development in the northern part of Tualatin is the key factor when seeking to determine whether a road would be a useful facility in the Hall Boulevard- Tualatin Road corridor. Capacity improvements in the Hall Boulevard-Tualatin Road corridor or the Upper Boones Ferry Road corridor may or may not be necessary, depending upon the amount of development in the area. Those corridors are not, however, the only facilities in the area which will require extensive improvements if a build-out development scenario occurs. Should additional capacity be needed due to development, the Hall Boulevard-Tualatin Road connector, including a bridge over the Tualatin River, may be a viable alternative to widening of Upper Boones Ferry Road. The Cities of Tigard and Tualatin need to carefully analyze the development potential of the vacant land which could have significant traffic impact on the corridor and resolve the issue of differences between their assumptions and those of Metro. Whether proposed as a two-lane or four-lane facility, construction of a bridge and roadway would require a formal environmental analysis, most likely an Environmental Impact Statement. It would also require plan amendments on the part of several jurisdictions. Both would be lengthy and expensive processes, but would help ensure that a broad range of alternatives were clearly and carefully evaluated. A bicycle-pedestrian bridge would also require an environmental assessment and planning actions on the part of local agencies. The actions would likely be both less expensive and less time-consuming than would be those for a road. (--- Many of the impacts, including environmental, land acquisition, impacts on parks, and traffic operations, would likely be easier to resolve or mitigate if the rail line were to be abandoned at some future date. Construction of a road is estimated to have a greater impact than would construction of a bridge for bicyclists and pedestrians. 1 28 • Because of the lack of a demonstrated, short-term need for a road, Tigard and Tualatin need I not actively pursue funding for or an environmental analysis for a road connection or acquisition of the railroad right-of-way. However, because of a long-term potential need for additional street capacity due to a build-out land use scenario, the cities should probably not abandon all plans for public use of the corridor. The cities should seek to resolve land use and development issues, continue to monitor possible changes in use of the rail line, and retain easements, setbacks or other mechanisms to protect the corridor. Because a connector for exclusive use of bicyclists or pedestrians is judged to have lesser environmental, land acquisition, and traffic operations impacts, there are fewer reasons for delay action on a facility to serve these modes. Consideration of a bicycle-pedestrian facility CJ�U 3 can proceed if sufficient justification exists independent of other needs. —� 1. 29 • , 4., TABLE A-1 SIGNALIZED LEVEL OF SERVICE LEVEL DESCRIPTION OF SERVICE A Operations with very low delay - less than 5 seconds per vehicle; occurs when most < >� vehicles arrive during green phase, with most vehicles not stopping at all; short cycle lengths may contribute to low delay. B Operations with delay from 5.1 to 15 seconds per vehicle; occurs with good progression and/or short cycle lengths;more vehicles stop than with LOS A. C Operations with delay from 15.1 to 25 seconds per vehicle; occurs with fair progression and/or longer cycle lengths; individual cycle failures may begin to appear at this level; the number of vehicles stopping is significant at this level, although many vehicles still pass through the intersection without stopping. D Operations with delay from 25.1 to 40 seconds per vehicle; at this LOS, the influence of congestion becomes more noticeable; longer delays result from a combination of unfavorable progression, long cycle lengths, or high volume/capacity (v/c) ratios; many vehicles stop,and the proportion of vehicles not stopping declines; individual cycle failures are noticeable. E Operations with a delay of 40.1 to 60 seconds per vehicle; upper limit reflects capacity of intersection; high delay indicates poor progression, long cycle lengths, and high v/c ratios; individual cycle failures are frequent. F Operations with delay in excess of 60 seconds per vehicle; condition occurs from over- saturation,when arrival flow rates exceed capacity of the intersection; may also occur with high v/c ratios less than 1.0 with many individual cycle failures;poor progression and long cycle lengths may also contribute to high delay. Source: Transportation Research Board, Highway Capacity Manual, Special Report 209, National Research Council,Washington,D.C., 1985. A-1