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HomeMy WebLinkAboutMiscellaneous PLANNER 4/22/2004 .llQa.rYI<AJ~p:..ci~-ci8:.ci?ETrarii gO~i.',~9(t .~~-~. ,..-,~- - .=.-.::::::-: ~=_=E,!g~Ij Date: To: From: Subject: November 22, 2002 Colin Stephens, Planner II Gary McKenney, P.E., Transportation Planning Engineer PeaceHealth Plan Amendments, Journal No. 2002-08-243 & 244 pu3.. . 8}:1#--' '~1/.) tl-P If ~f~1I- \%tl: ~l City of Springfield (y~ Memorandum The Transportation Division has reviewed the materials provided with the subject application, The findings outlined below are based on our review of the submitted Traffic Impact Analysis. (TIA) prepared by JRH Transportation Engineering dated September 20, 2002. This review. evaluates the application and supporting TIA with respect to the transportation-related State-wide Planning Goals and Administrative Rules as required by SDC 8.030 (3). Relevant Criteria The Transportation Planning Rule (TPR) as set forth in Oregon Administrative Rules Chapter 660, Division 12, and the 1999 Oregon Highway Plan (OHP) contain the following criteria, which are relevant to this application, OAR 660-012-0060 states: "(I) Amendments to functional plans, acknowledged comprehensive plans, and land use regulations which significantly affect a transportation facility shall assure that allowed land uses are consistent with the identified function, capacity, and performance standards (e.g. level of service, volume to capacity ratio, etc.) of the facility. This shall be accomplished by either: "(a) Limiting allowed land uses to be consistent with the planned function, capacity, and performance standards of the transportation facility; '. . "(b) Amending the TSP to provide transportation facilities adequate to support the proposed land uses consistent with the requirements of this division; "(c) Altering land use designations, densities, or design requirements to reduce demand for automobile travel and meet travel needs through other modes; or "(d) Amenaing the TSP to modify the planned function, capacity and performance standards, as needed, to accept greater motor vehicle congestion to promote mixed use, pedestrian friendly development where multimodal travel choices are provided. Date Received: Planner: ;} \) . 4 -1~-D+_ I of t(trVlnl" U H__"'""" ~!Y.M~f~_9?:O?~O:E{fi~ii~.<;:Qrn:rjielJt~._:_ ,-^,~-,."".",~-, .._^_....~,,~.~~....""--~'". -~~~:. .:""_:-:_:::.:'. P, ae2~ .,_9.___ t-:l. ,- -' -<'. -'" J ' {--. ,-' ":':PeaceHe\'lf~MetroJGRPAni\'ndments , . "-...}. r . . 'Transportation ORe,Comments n. " .,-.,,' "~ ' ! .".. November 22; 2002 , ' ' :', , i>1' Page 2 of 10 '.",F , .......l OAR 660-12-060(2) establishes that a proposed plan amendment would "significantly affect" a transportation facility if it: a) Changes the functional'classification of an existing or planned transportation facility, b) Changes standards in1plementing a functional classification system. c) Allows types or levels ofland uses which would result in levels of travel or access which are inconsistent with the functional classification of a transportation facility; or d) Would reduce the level of service of a facility below the minimum acceptable level identified in the TSP," The four tests for significant effect will be referred to as Criteria 2-a t02-d and 'the four , mitigation measures will be referred to as I-a to I-d. Regarding Criteria 2-d, OHP Action IF6 states: "For purposes of evaluating amendments to transportation system plans, acknowledged comprehensive plans and land use regulations subject to OAR 660- 12-060, in situations where the volume to capacity ratio for a highway segment, intersection or interchange is [substandard] above the standards in Table 6 or Table 7, or those otherwise approved by the Commission, and transportation improvements are not planned within the planning horizon to bring performance to standard, the perfonnance standard is to avoid further degradation. If an amendment to a transportation system plan, acknowledged comprehensive plan or land use regulation increases the volume to capacity ratio further, it will significantly affect the facility." ArlPlicabilitv of Criteria Finding: For, purposes of this review the key test for significant effect is Criterion 2-d. The other criteria may be briefly addressed as follows: ' . Criterion 2-a is not applicable because the proposed amendments would not change the functional classification of any transportation facility. . ' Criterion 2-b is not applicable because the proposed designations do not change any standards implementing a functional classification system for transportation facilities. . Criterion 2-c is applicable and is satisfied because primary access to the subject land will be via state highways and arterial streets whose function is to carry traffic to and from major ~..;'"':: '--:-.,- . '{.' "... ~. .... , .. .... oj,' ~ '; , " ~I Ir??rL~BE::6_?~b~:Q2.4~Ir?Dig9r!i.:d_ciC::- ~,~ .. --_._-===~:=:==:=.:::=.:=::===.P.<jgEiII Peace Health Metro/GRP Amendments Transportation DRC Comments Novemtier 22, 2002 Page 3 of 10 destinations within and without the urban area. Secondary access will be provided by designated collector streets whose function is to distribute traffic to and from the al1erial street system and provide a limited amount of direct access to abutting land. The functional classifications of streets in Springfield are designated on the map titled "Federally Designated Roadway Functional Classification Eugene-Springfield Metro Area," in Appendix A to the September, 2001 TransPlan (the Eugene-Springfield Metro Area's adopted TSP). City streets that would serve as primary access routes to the site are the Pioneer Park~ay Extension (PPE) and Beltline Road East, both of which are designated as minor arterials. Harlow/Hayden Bridge Road, which is designated as major collector on the map, will serve as a secondary access route. OAR 660-12-060(2) (d) Finding: Criterion 2-d is applicable arid is satisfied by the plan amendment application and supporting TIA as explained in the following discussion. Level-of-service Standards TransPlan's TSI Roadway Policy # 2: Motor Vehicle Level of Service establishes perfonnance standards for local facilities and includes OHP mobility standards for state facilities as follows: "). Use motor vehicle level of service standards to maintain acceptable and reliable perfonnance on the roadway system: These standards shall be used for: , b. IdentifYing capacity deficiencies on the roadway system. c. Evaluating the impacts on roadways of amendments to transportation plans, acknowledged comprehensive plans and land-use regulations, pursuant to the TPR (OAR 660-12-0060). d. Evaluating development applications for consistency with the land-use regulations of the applicable local govemmentjurisdiction. "2. Acceptable and reliable service is defined by the following levels of service under peak hour traffic conditions: Level of Service E within Eugene's Central Area Transportation Area, and Level of Service D elsewhere. . "3. Performance standards from the Oregon Highway Plan shall be applied on state facilities in the Eugene-Springfield metropolitan area. "In sOme cases, the level of service on a facility may be substandard. The local government jurisdiction may find that transportation system improvements to bring performance up to standard within the planning horizon may not be feasible, and safety will not be compromised, and broader community goals would be better served by . ~ry_t<6RP' :9?:08:Q?II:tra:n~c-c;miI1",6is.== ,~~'~n" ~,,~_.'^ _" ~ "'.____"...'_..._M=."-.'H__n_ ......._,.,- .-..'........... .~=:::p~8iil . PeaceHeatth Metro/GRP Amendments Transportation ORC Comments November 22,2002 . Page 4 of 10 allowing a substandard level of service. The limitation on the feasibility of a transportation system improvement may arise from severe constraints including but not. limited to environmental conditions, lack of public agency financial resources, or land use constraint factors. It is not the intent ofTSI Roadway Policy #2: Motor Vehicle Level of Service to require deferral of development in such cases. The intent is to defer motor vehicle capacity increasing transportation system improvements until existing constraints can be overcome or develop an alternative mix of strategies (such as: land use measures, TOM, short-term safety improvements) to address the problem." September 2001 TransPlan Ch. 2, Page 11. The above described TransPlan Levels of Service (LOS) standards are based on criteria contained in the Highway Capacity Manual (HCM) published by the National Research Council's Transportation Research Board. For signalized intersections the H<::M uses seconds of average- vehicle delay to define LOS. Tables 6 and 7 in the 1999 OHP establish mobility standards based on Volume-to-Capacity (v/c) ratios. The application of those standards is detailed in the TlA and is summarized in the following discussion. To establish atime frame for analyzing impacts of plan amendments OHP Action IF.2'states: "Apply the highway mobility standards over a 20-year planning horizon when developing state, regional or local transportation system plans, including OOOT's corridor plans. When evaluating highway mobility for amendments to transportation system plans, acknowledged comprehensive plans and land use regulations, use the planning horizons in adopted local and regional transportation system plans or a planning horizon of 15 years from the proposed date.of amendment adoption, whichever is greater." The planning horizon adopted for TransPlan is 2015 and adoption of the proposed plan amendments is assumed to occur in 2003. Thus, the TIA uses a horizon year of2018. . Through coordination with affected state and local agencies the scope Mthe TIA was established to include the following transportationfacilities: . Belt Line Road from Coburg Road to Game Fann Road South . Belt Line Road at Coburg Road ramp tenninals . 1-5 from north of Belt Line Road to south ofl-I05 . 1-5 at Belt Line Road interchange . 1-5 at 1- I 05 interchange . Gateway Street! Game Farm Road North from International Way to Harlow Road . Game Farm Road East, International Way and Oeadmond Ferry Road . Game Farm Road South between Oeadmond Ferry Road and Hayden Bridge Road . Hayden Bridgel Harlow Road from 1-5 to Pioneer Parkway . Pioneer Parkway from Belt Line Road to south of Highway 126 (including the Pioneer , : rS;aryIARP - Q2:O_~::.6244Jra.fij 9gmin 9.99 'P~ge 5 PeaceHealth Metro/GRP Amendments Transportation DRC Comments November 22, 2002 Page 5 of 10 Parkway Extension) . 1-105/ Highway126 from 1-5 to Pioneer Parkway . Highway 126 at Pioneer Parkway interchange . Q Street from westb9und Highway] 26 off ramp to westbound Highway 126 on ramp . Planned on-site transportation facilities Level of Service Analvsis The TlA examined the potential for the proposed plan amendments to cause operational performance on the above listed transportation facilities to fall below the minimum acceptable standards identified in TransPlan through the required 2018 horizon year. Implicit in the TlA's approach to addressing OAR 660-12-060(2)(d) is the assumption that development of the subject property and surrounding lands under existing olan designations would require additional roadway capacity to be provided by 20 IS. TransPlan confirms, and the TIA correctly assumes, that by 2015 additional roadway capacity will be provided by the following projects shown on the Financially-Constrained Roadway Projects map and list: . TransPlan Project #768 - Pioneer Parkway Extension - Extend Pioneer Parkway from Harlow Road to Belt Line Road . TransPlan Project #606 - 1-5 at Belt Line Road - Right-of-way purchase . TransPlan Project #606 - 1-5 at Belt Line Road - Reconstruct interchange and 1-5; upgrade Belt,Line Road East to 5 lane urban facility; and construct 1-5 bike and pedestrian bridge . TransPlan Project #622 - Belt Line Road at Coburg Road - Construct ramp and signal' improvements . TransPlan Project #774 - Q Street at Pioneer Parkway - Traffic control improvements TransPlan Project #721 - Cardinal Way from Game Farm Road to MDR north-south connector - Upgrade to 2 to 3-lane urban facility, new collector street . TransPlan Project #756 - McKenzie-Gateway MDR Loop Collector - New 2 to 3-lane collector into site . TransPlan Project #762 - North-south connector within MDR site - Construct new 3-lane north-south collector . TransPlan Project #785 - Gateway/ Harlow intersection - Intersection improvements . TransPlan Project #71 5 - Baldy View Lane from Deadmond Ferry to end of dedicated right-. of-way - Upgrade to urban standards fl:(3.iryJ~t.BP: ~~2~Q~~Q~4nr~~:..tQDi_ii)~nts.~ ..~ e-- ---- .'J __.'p"g~ ~ I Peace Health Metro/GRP Amendments Transportation ORC Comments November 22, 2002 Page 6 of 10 . TransPlan Project #724 - Deadmond Ferry Road from Baldy View Lane to McKenzie River - Upgrade to urban standards . TransPlan Project #737 - Game Fann Road South from Game Farm Road East to Harlow Road - Upgrade to 2-1ane urban facilitY . TransPlan Project #750 - Laura Street from Scott's Glen Drive to Harlow Road - Widen to 3- lane urban facility . TransPlan Project #606 - ]-5 at Belt Line Road - Project development work In addition, the Future Roadway Projects map and list in TransPlan include "Project #727- Highway 126 at Pioneer Parkway - Interchange improvements." Future (beyond 2015) projects are'not planned for construction during the planning period. Although these projects are not part of the financially constrained plan they can be implemented earlier if additional funding is identified (see TransPlan September 2001; Chapter 3, and Page 7). The current City of Springfield Capital Improvement Program 2002-2007 includes $200,000 per year of programmed funding for "Gateway traffic improvements - Transportation improvements at various locations in the Gateway area to increase' capacity and relieve congestion." Project development work on TransPlan Project #606 - 1-5 at Belt Line Road has produced an Environmental Assessment document (EA), which provides more detail about the likely design ofthese planned facilities than is typically available in TSPs. The TIA took advantage of this additional detail to enhance the accuracy of its facility performance analysis. The TIA analyzed and compared performance of the above listed transportation facilities in 2018 under two development scenarios: . "Existing Designation" Scenario - this scenario assumed the current plan designation and MDR zoning for the site and the future-year land-use allocation included in the regional transportation model as used to develop TransPlan. . '''Proposed Designation" Scenario - this scenario assumed specific types and levels of development through the 2018 horizon year based on the applicant's intended future uses. The results of this analysis are summarized in the following tables: Table 1- Belt Line Road at Coburg Road "" "'-:. '::::':: .=., ,,:' ~,--.,...__.._..~-,,-,~_.,<_._.,~_.._._. "pae71 "","' 9 ",." IL?a!yjQ:t{fi.:Q?":b?:9,?4.rT[~D"i~C;9lrim.~ilc; PeaceHealth Metro/GRP Amendments Transportation DRC Comments November 22; "2002 Page 7 of 10 Facility Mobility Standard (max vie) Volume-to-capacity Ratio by Scenario 2018 "Existing Des;l1nat;on" 2018 "Proposed Des;ollotion" Westbound ram tenninal si2.nal 0.85 1.31 1.31 Ea"tbound ram tenninal si oa] 0.85 1.31 1.31 Westbound ram merge 0.85 0.76 0.80 Eastbound ramp diverge 0"85 0" 78 0,79 NOTE: The westbound diverge and the eastbound merge areas are analyzed as weaving segments; the results are provided under The ]-5/ Belt Line Road summary. Table 2 - 1-5/ Belt Line Project Area Facility Mobility Volume-to-capacity RlItjo and LOS by Scenario Staodard (max vIe and! or LOS) 2018 nExisling 2018 <<Proposed Desi!!lration" Desi!!nat;on" Belt Line Road at Gateway Street 0"85 0"70 0"79 Belt Line Road at Hutton Street LOSD LOSB LOSB Belt Line Road at Game Farm LOSD LOSB LOSB Road Game Farm Road at International LOSD LOSB LOSB Wav Gateway Street at Game Farm LOSD LOSB LOS B Road' , Gateway Street at Gatewav Loop LOSD LOSB LOS B Gateway Street at Postal Way LOSD LOSD . LOSD Game F ann Road at Deadmond LOSD LOSC LOSD Ferry Road Northbound 1~5 off-ramo si2Tlal 0"85 M6 0"68 Southbound 1-5 off-ramo signal 0"85 0"62 0"70 Northbound 1-5 weave between 0"80 058 059 1-105 and Belt Line Road Northbound 1-5 off-ramD sDlit 0"80 0"51 , 0"51 Northbound 1~5 merge 0"80 0"50 051 Southbound 1-5 diverpe 0"80 0"55 055 Southbound 1-5 off-ramn split 0"80 0"53 053 Westbound Belt Line Road weave 0"85 0"70 0"75 between 1.5 and Coburp- Road Eastbound Belt Line Road weave 0.85 052 0,53 between Coburg Road and 1~5 Westbound to soutlJbound loop 0"80 OAO 0.45 ramn merfte Southbound 1-5 weave between 0"80 0"50 053 Belt Line Road and 1-105 ~Y_t<bRE:~:6.?:Q8~924{Ii~:ii~g9JJ]ri1~ri[s,.=:_._.= ::::::::,-:.- . ~--^~~~~ "'Pam ... ....9.._ PeaceHealth Metro/GRP Amendments Transportation ORC Comments Novem ber 22, 2002 Page 8 of 10 - Table 3 - Levels of Service for Gateway Mall Area Intersection Facility Mobility Volume-ta-capacity Ratio and LOS by Scenario Standard (max vIe andl or LOS) 2018 "Existing 2018 "Proposed .. DesifJlJalion" Desio;wtiolJ " Northern Mall Access at Gateway LOSD \-OSA LOS A Street Southern Mall Access at Gateway LOSD LOSB LOSB Street . Harlow Road at Gateway Street LOSD LOSe LOse Harlow Road at Beverly Street LOSD LOSe Lose Table 4 - Hayden Bridge Road Intersections Facility. .Mobility Volume-ta-capacity Ratio and LOS by Scenario Standard (max vIe and/ . . or LOS) 2018.IExisting 20/8 "Proposed Desionlltiolt " Desiontltion" Hayden Bridge Road at Laura LOS D LOSe LOse Street and Game Fann Road South I-Iayden Bridge Road at Pioneer LOSD LOSD LOSD Parhvay (Extension) Table 5 - Highway 126/ Pioneer Parkway Interchange Area Facility Mobility Volume-ta-Capacity Ratio and LOS by Scenario Standard (max vlc andl .. or LOS) 2018 "Existing 2018 "Proposed Desionation" DesirTIJotiOl'" Pioneer Parkway at Pioneer Plaza LOSD LOSA LOS A Access Pioneer Parkway at Q Street 0.85, LOS D 0.73, LOS e 0.83, LOS e Q Street at westbound Highway 0.85 0.64 0.67 126 off-ramo Pioneer Parkway at eastbound 0.85 1.03 1.12 - unmitigated Highway 126 ramps 0.93. miti.ated 1[~~rYjSfEE'::":Q?:--91l:It?<l4::tr:a.ns3;;~mril.9.i: ~--~ """::=.=," ,,'.<-'-^" <,..>~~.."._,.- ":,'=Eag~,ri~ PeaceHealth Metro/GRP Amendments Transportation DRC Comments November 22, 2002 Page 9 of 10 Eastbound Highway 126 ramp 0.85 0.88 0.88 diverp-e Eastbound Highway 126 ramp 0.85 0.78 0.81 mer!!e WeStbound Highway 126 ramp 0.85 0.72 0.73 diverl!e " ,... . ".... . . Ir(;"?ry.~ABPr~9.?-6?J)?44.IrinJ>rcori1fDe;6i~...'. ".~.,~. tag~:iQ.~ ---=- ".,,,-^._,,.,.~, PeaceHealth Metro/GRP Amendments Transportation ORC Comments November 22, 2002 Page 10 of 10 Table 6 - I-lOS/Highway 126 at I-S Interchange Facility Mobility Volume-to-capacity Ratio by Scenario , Standard (max vie) 2018 "Existing 2018 "Proposed Desi!:nllJioll'" . Desi1!llutioll " Eastboundl westbound 1-105 to northbound 0.85 0.76 0.76 1-5 ramp combine , Eastbound! westbound 1-105 to southbound 0.80 0.82 0.82 1-5 ramn combine Northbound to westbound loop diverge 0.85 0.48 0.49 Northbound to westbound loop merge 0.85 0.6t 0.61 Southbound to westbound merge 0.85 0.63 0.65 Westb()und to southbound diveme 0.85 0.64 0.64 Westbound Hwy. 126 weaye between 0.85 0.74 0.74 Pioneer Parkwav and 1.5 , Northbound to eastbound merge 0.85 0.84 0.84 Northbound to eastbound diverge 0.80 0.53 0.54 Eastbound to northbound diverge 0.85 0.96 0.96 Eastbound to southbound diverge 0.85 0.95 0.95 Eastbound to southbound merge 0.80 0.64 0.65 Southbound to eastbound 1000 diverge 0.80 0.56 0.58 Southbound to eastbound loop Il)erge 0.85 0.92 0.92 Table 7 - Planned Facilities within the Development Vicinity Facility Mobility Standard LOS under the 2018 "'Proposed (LOS) Designation" Scenario Pioneer Parkwav at Cardinal Way LOSO LOS C Pioneer Parkway at" southern access LOSD LOS A road Cardinal Way at Game Fann Road LOS 0 LOSC Cardinal Way at RiverBend Street LOS 0 LOSC RiverBend Street at southern access LOSD LOS B , road RiverBelld Street at right-in! right.out LOSD LOSe access road \ . [~a_ry::~~p_:,Qf@:iJ~.44 'frirl~,c.ori:1m.~9~~' ":~::~-=".=.::',"':~':'_=",.'._-::.~ _."..,w"'~ ~~"__""_~_^.. -'1"8-811,',) -- .~.._"g- . PeaceHealth Metro/GRP ,Amendments Transportation DRC Comments November 22, 2002 Page 11 0110 As shown in Table 5 above, the mobility (Ievel-of-service) standard specified in the OHP for the OR 126 Eastbound Ramps/Pioneer Parkway intersection is a maximum v/c ratio of 0.85. Under the "Existing Designation" scenario the v/c ratio in 20 18 is estimated to be 1.03. Therefore, per OHP Action I F.6, the performance standard for the proposed plan amendments is to avoid further degradation. Without mitigation, development permitted under the designations proposed in this application would cause the v/c to fall to 1.12. To demonstrate that the proposed amendments would avoid further degradation and thus not "significantly affect" the facility as defined in OAR 660-12-060 Criterion 2-d, funding must be assured for a portion of the capacity- ~dding improvements anticipated in TransPlan Project #727.