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Minutes - 01/06/2000 Workshop COUNCIL WORKSHOP MINUTES JANUARY 6, 2000 TAPE READING DATE. COUNCIL CHAMBERS, CITY HALL, CITY OF WOODBURN, COUNTY OF MARION, STATE OF OREGON, JANUARY 6, 2000. CONVENED. Mayor Jennings opened the workshop at 7:05 p.m.. This was a joint session with the Planning Commission to discuss transportation policy issues as it relates to the 1-5 Woodburn Interchange Refinement Plan. ROLL CALL. Mayor Councilor Councilor Councilor Councilor Councilor Councilor Jennings Bjelland Chadwick Figley Kilmurray Pugh Sifuentez Present Present Present Present Present Absent Present Planning Commission members present: Irv Fletcher (arrived at 7: 13 pm), James Cox, Ellen Bandelow, Terri Heer, Royce Young Also Present: Terry Cole, Oregon Dept. of Transportation, Jay McRae, CH2M Hill Staff Present: City Administrator Brown, City Attorney Shields, Public Works Director Tiwari, Public Works Manager Rohman, Community Development Director Goeckritz Note: This workshop was recorded, however, minutes were taken by Sandra Hillman, Public Involvement Coordinator for the Oregon Dept. of Transportation. A copy of Ms. Hillman's summary is attached as the written record for this workshop. APPROVED ~.l..~ ~ RIC ARD JENN S, M(YOR ATTEST (o/~'tJ4.-4- Mary ant, Recorder City of Woodburn, Oregon Page 1 - Council Workshop Minutes, January 6, 2000 ,---,"",---"--'~',._---<'-'- 1-5 Woodburn Interchange Refinement Plan City of Woodburn Joint City CouncilJPlanning Commission Workshop January 6, 2000 Summary Mayor Richard Jennings called the meeting to order. He asked that questions be held until the presentation had been completed. Terry Cole, ODOT and Jay McRae, CH2M Hill presented information on the study findings to date. This presentation was based on the attached slides (Attachment I). Terry reviewed the What is this Refinement Plan? and Woodburn Refinement Plan - Process Flow slides and noted that the analysis shows that the existing interchange can be improved to meet the projected needs for year 2020. While reviewing the Refinement Plan Goals slides he also pointed out that an application for a design exception for the grade would be needed. The preferred grade is 3%, the existing grade is 5 to 5.5% and the proposed grade is 4 to 4.25%. Jay reviewed the Problem Statement and Alternatives slides. The information on the Alternatives Information slide is based on format from AASHTO. Three alternatives were analyzed by the Technical Advisory Committee and reviewed at the stakeholder meetings. They are a Partial Cloverleaf Type A or Parclo A (similar to the interchange at Stafford Road), a Tight Urban Diamond (similar to the intersection in south Wilsonville) and a Standard Diamond (similar to the existing interchange). While presenting the Alternative Evaluation slides Jay noted that costs identified for the Standard Diamond do not reflect digging out 1-5 or widening on both sides of the structure as required to achieve design standards for vertical clearance between 1-5 travel lanes and the bottom ofthe Highway 214 overcrossing structure. For all alternatives, there will need to be local street access in all four quadrants. Terry said that the OTC has made it clear that the cost of the project will include making the system for local access whole. Responding to a question, Terry explained that the issue of right in/right out access has not been fully examined. That issue will be explored as the environmental process is initiated and before the environmental assessment is completed. Jay continued presenting the Alternative Evaluation slides. He said that the Tight Urban Diamond was dismissed by the Technical Advisory Committee due to costs, impacts, and no operational advantages. Jay explained that the Partial Cloverleaf Type A (Parclo A) means that the loop ramps of the cloverleaf are in advance of the structure. The diagrams he was using showed widening to the north, but it could be widened to the south or some combination Page 1 - Summary of Council Workshop, January 6, 2000 . ~"'r--r- "-"-""'-~ ---,.--. of north and south to accommodate this design. Local street system and access issues still need to be worked out in the hatch marked areas. Signal phasing would be two phase with no left turns for the Parclo A. The stakeholder groups preferred this alternative for the following reasons: . Left turns were eliminated . ROW impacts were reduced . Lower cost Although he did not have a diagram to share, Jay explained that a fourth alternative with a diamond design on the west and a loop design on the east was proposed at a stakeholder meeting. This design would have 2 through and 2 left turn lanes from the west and 2 through and I right turn lane from the east on the structure. The southbound ramp traffic signal would be 3 phase with left turns on the structure and 2 phase on Hwy 2 14 at the northbound ramp traffic signal. This design would not perform as well as any ofthe other three alternatives on Hwy 214 and would cost about the same as the Standard Diamond due to the costs of widening the overcrossing structure, addition of the loop ramp, and right-of-way acquisition. There were no clear advantages to this design and Terry indicated that it does not work as a long term solution. Jay and Terry also explained that Randy Rohman and Frank Tawari had proposed adjusting the existing structure to accommodate five lanes by either eliminating the on stucture sidewalk or cantilevering sidewalks off of the existing structure. The travel lane configuration would consist of two through lanes eastbound and one left turn lane, one shared left/through lane, and one through lane westbound. Terry and Jay explained that mixed traffic flows in lanes, in combination with the split phase traffic signal circumstance that would be required would significantly impair traffic flow because east and westbound traffic on Highway 214 would not be allowed to move at the same time. The added delay would extend queuing and traffic would backup onto the local street system at Evergreen. The proposed five twelve-foot lanes would not leave space for shoulders or "shy" distances on the existing structure according to the 'as constructed' drawings. The team found no advantages to this design and a variety of disadvantages. Frank Tawari stated that the impacts on the west side of the interchange were less to Arney Road and might allow for staged or phased implementation of the ultimate solution including consideration of a second interchange. He does not want to see this option eliminated without more consideration. Terry explained that ODOT is not dismissing a phased approach and that phasing will be investigated as part of the environmental assessment. He added that, the purpose of this project is to identify the best long-range course of action for dealing with the problems at the existing interchange How we get from here to there has not yet been assessed, but depending on funding, it may have to be more incremental. Terry reviewed the Stakeholder Input Opportunities and Recommended Next Steps slides. He also distributed a handout titled, ODOT Objectives for Woodburn TSP Amendment (Attachment 2). Page 2 - Summary of Council Workshop, January 6, 2000 ---' --- ,._""w...~. ',."._~"'...."__.._''''_._.,~'~. >.,.~..__._.,' __~._,~__~_~ Frank Tawari gave a brief presentation on the design that he had proposed to the team earlier. He indicated that there was 71 feet on the overpass, if you count the current sidewalks. He would like to see the cloverleaf in the southeast quadrant considered for a "quick fix". Terry indicated that taking it through the planning process would take about the same time as for any full alternatives. Frank said that the improvements to this interchange may not be needed if a second interchange is implemented. Terry reviewed ODOT and FHW A spacing standards for interstate access and said that a second interchange would not provide enough relief to the existing interchange to avoid making the level of improvements to the existing interchange identified in the Refinement Plan. The rural spacing standard is 6 miles and the urban spacing is 3 miles. Exceptions can be applied and the best that could be hoped for is a second interchange at St. Louis Road even if the exception criteria can be met. Further, the existing uses in the interchange are regional destinations in and to themselves that do not lend themselves to enough trip diversion to lessen required improvements to existing facilities. The fact of the matter is that today' s traffic demands justify the addition of through lanes to Highway 214 without factoring in additional background growth in travel demand. Improvements as shown accommodate future travel demand forecasts for 2020 and beyond for 25 to 30 years assuming growth trends are as planned. John Brown gave a brief response to what he had heard during the presentations. He felt that implementing the items in the ODOT Objectives for Woodburn TSP Amendment would tie the City's hands for the future. He does not want to see the door closed on the option of a second interchange. There is an opportunity for the City of Woodburn to fund short term changes to allow to planning for a second interchange. John added that the Lands Committee has identified the need for 200 new acres in the southwest area for future development. Without the second interchange, this would be hard to accomplish. He felt that the presentation of the three alternatives at the stakeholder focus group meetings was really an exercise in identifying what they hated the least, not what they liked. A fourth alternative, like Frank's, should be considered. Terry reminded them that they did not need to avoid mention of the second interchange in their comprehensive plan. However, the need for a second interchange has to be expressed on its own merit and not as solution to the problems at the existing interchange.. ODOT's policy is to support existing comprehensive plans, but they would object to any land use or zoning amendment that can not be served by current facilities (see item 6 ODOT Objectives for Woodburn TSP Amendment). Members at the table expressed concern that making improvements to the existing interchange would make getting a second interchange more difficult. It was noted that DLCD and the City of Woodburn are planning an economic development study that mayor may not call for a second interchange as a condition of urban expansion. The Mayor reminded everyone that the Oregon Highway Plan calls for improving existing facilities before building new ones and that doing nothing was not an option. A city council member expressed concern the by looking for the "Cadillac plan" changes that could be made now are being overlooked. She feels that history shows that Page 3 - Summary of Council Workshop, January 6, 2000 --" ,._.-..,.--."....,t-"~_.._-,..,_."~..,~.._" study predictions are usually inaccurate and understate actual growth. She is concerned that growth in surrounding communities and the region are not given due consideration in this study. Terry explained that outlying traffic and background growth are factored in and are usually pretty accurate over 20 years. If the City believes that ODOT has underestimated the impacts of the outlying communities, that is even more reason to choose the alternative that operates best over the long-term, versus a more marginal, short-term fix. John Brown doubts that the gas tax will stay in place and expects that there will not be enough money to implement the recommended alternative. There should be a plan in place to do some improvements with or without the bond. Terry pointed out that Frank's recommended design has not been eliminated, as it actually combines elements of the two alternatives that are being considered. During the Environmental Assessment the issue of phasing can be addressed. There is stiff competition for STIP funds, but much of that competition is from high dollar projects. These high dollar projects will greatly exceed the available funds, making this project more attractive for the available dollars by comparison to other projects-it is at least not out of the question if the bond package fails. The Mayor pointed out that it is important to be as far along as possible in planning when competing for STIP funds. The Mayor submitted a paper with citizen comments from Barbara Lucas into the public record (Attachment 3). The group requested more opportunity for general public input. The Mayor does not want a "show and tell", but true public input. Terry indicated that there would be many opportunities for public input when the project moves into the environmental assessment process. Attachment 4 -Sign In Sheet Page 4 - Summary of Council Worksh~p, January 6, 2000 -...-. .'. ..~..,_.",._-_......_...,.__..._.~~,.._..,.__._____,,_., _",O'''_'.._.".,_,__,.~~"___~ .-.".-,..t.-..-......... ~ o o ~ 0- ""- r:::r ~ 8 ~ -. 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(i) 0 ~ ::s (i) 0-. f""+- ~ 0 (J) ,... ::s . ...~ (J) o ~ ~ o 0- - . ~n~ - _. 1-1 ~~~ . ~ o 1-1 ~(i) ~~ o ::s o ~ 0- - ~~ 8 =n >~ g-~ ~. a g ~ ~l' ~ o ~ ~1-1 o 0 o ~ an n~ O~ 3"e "'0 ~ 1-1 0 (i) < ~~ (i) - ~ ~ ~. 0- (i) ---.. .....-.".. ,'. -_._._~_.,~"_.~..,. ,", ".-...-,..-..------------ o o S S (i) a (J) (JQ a ~ (i) 1-1 (i) 0- f""+- o 0- a (i) . . ~ 1-1 (i) ~ ~ (i) tJ 1-1 ~ ~ ~ w. ::s (i) S (i) a ~ - ~ -. ::s (j o ~ o 1-1 a -. ::s QC/ p. - :::c ~ f') o :3 :3 ~ = Q. ~ Q. ~ ~ ~ fI"Io. iJ). fI"Io. ~ -c rI.l OOOT Objectives for Woodburn TSP Amendment (pursuant to final interchange Refinement Plan) (1) The existing Woodburn TSP notes the problems at the interchange and speculates on a variety of possible solutions, ranging from a new or second interchange to a split diamond to a fix of the existing interchange. OOOT will seek concurrence that the interchange problem as noted in the city's TSP can be addressed by improving the existing interchange, in line with the concepts documented in the Refinement Plan. (2) OOOT will seek concurrence on the implementation of access control from Woodland Avenue to Oregon Way on Highway 214 with a full directional public intersection located at Evergreen Street. (3) OOOT will seek concurrence on the need for developing significant off-highway circulation improvements to protect future interchange and Highway 214 function and to protect the long-term viability of area businesses. (4) OOOT will seek the City's commitment to implement a circulation plan in the areas specified in the Refinement Plan, subject to selection of the preferred alternative resulting from the NEPA process. These improvements will need to be implemented prior to construction of interchange and Highway 214 improvements. (5) OOOT will also seek concurrence that there may be a need for additional terms and other conditions of construction that will need to be specified in an interagency construction/finance agreement. If needed, this agreement will be developed during the EA phase of project development as the project specifics begin to firm up and it will need to be fully executed prior to construction. (6) OOOT will seek concurrence that future City land use actions will not be based on the refinement plan concepts alone-future land use actions which are dependent on the interchange being improved must be contingent upon secured funding for the improvement, an approved EA, and a realistic construction timeline for completion of interchange improvements. 1/&/;.,,00 tltl"dc..d= Cc/pe. U) ~ I'/<".-h,,1' "--".--~'''-''''~'.'~' .-. .,.- A Citizen's COlnments on OOOT'S PLAN TO SOLVE 1-5/HWY 214 TRAFFIC PROBLEMS . <'~,' ., ,,",,co,",,"~ )9-'~!;f1"":~ -"-l'f:, ..;.,.,......."., "i"i;'........~. '. ...' ._~;.<',..,.:;.~-.',,~~- .~Jt ;.,:r:x:->',' " ,_i.-,. . :;... t- I _. NO R1CHft TURN "," by Barbara Lucas 214 E. Clackamas Circle Woodburn OR 97071 January 3, 2000 en. .- W .....J .....J :J ale .....J <( o - 0::. o r- en - I en · Hwy 214 1998 daily traffic 24,000; r- forecast Yr 2020 36,000 daily w. .....J .....J :J al . $20 million plan covers construction costs only Apr 1985 Woodburn asks OOOT to plan for 5-lane Hwy 214 . May 1987: daily traffic 12,000; forecast 19,000 daily Yr 2005. OOOT begins planning for Hwy 214 four travel lanes and continuous left turn lane Sep 1987: OOOT recommends widening Hwy 214 between Woodland and Oregon Way, redesigning interchange to include loop ramps and a four-lane structure, controlling access z O. - .- :J. .....J O. en .- O. o o May 1991: OOOT terminates planning - new project design needed to accommodate pending large developments. . Jun 1996: City adopts Transportation Plan; opts for widening Hwy 214 to Boones Ferry; improvements to present interchange and for a second interchange. . Oec 1998: Marion County Transportation Plan policy to study need for second interchange in North Marion County. . Mar 1999: OOOT begins refinement study of Woodburn interchange . May 1999: OOOT puts Woodburn project on list of projects to be financed with funds from May 2000 gas tax ballot measure . Nov 1999 OOOT takes 3 scenarios to 25 people in focus groups OOOT $20 million Plan widens Hwy 214 from 1-5 to Oregon Way; provides two partial loop ramps at interchange; closes all Hwy 214 driveways between 1-5 and Oregon Way Plan does not cover environmental work, preliminary engineering or right-of-way purchases The $20 million Plan is not on OOOT'S funding list, the STIP The Plan will be funded only if the gas tax passes in May . The Plan was developed by OOOT staff OOOT'S refinement study reached out to only 25 people. Only 25 saw the presentations. None of the 25 saw circulation plans for Oregon Way and Country Club Terrace and none saw Tiwari's ideas for minor changes to to the interchange. from lite desk of Barbara LUCll.'i 1 J4 E. Oackama., Circle Woodhurn OR 971/7/ (51/3) 9112-1114/ January 3. JIJ()(J J- o o o t- <( ~ - <( (9 z - ~ <( t- . This ODOT Plan is NOT on the STIP list. It's on a list put together by ODOT staff when a legislator asked what ODOT would do with money from an additional gas tax. The Plan disappears if the gas tax fails. ..... <( a.. . The Plan is a warmed over version of ODOT's answer to the traffic problems of 1985-1991, an answer which ODOT itself shelved in May 1991 when faced with new development at Tukwila, Walmart and Holiday Inn. <.9 z - o z <( ..... en . ODOT's Plan is NOT the answer to Hwy 214 traffic problems of 2000-2020. Proposed widening stops at Oregon Way, serving only the commercial interests at the interchange. . ODOT ignores the automobile drivers and truckers from Mt. Angel, Silverton, Hubbard, Gervais and Mo/alla who need non-grid locked access to the freeway, and for the next 20 to 30 years locks North Marion County traffic into this one interchange even though the County's population, employment, commuters and farm-to-market freight are slated to increase. . ODOT's Plan has stalled efforts to look at the need for a second interchange and a truck by-pass, rationalizing why spend the money on studies if the present interchange can handle traffic for the next 20 or 30 years? . '.~._.' ~." ..,...___...__4._~'_'__'~'_'_._'____'.__"__'_ _..."-'.~.,-<,~ . There is no need to rush adoption of this Plan into Woodburn's Comprehensive Land Use Plan or Woodburn's Transportation System Plan. Wait until the gas tax ballots are counted. Meanwhile, . Stand pat on your support to widen Hwy 214, with minimal changes to the present overpass, plus a second interchange. . Find out if ODOT's $20 million Plan will solve the Hwy 214 traffic problem for 20 to 30 years IF driveways between 1-5 and Oregon Way are left open. . Make sure ALL the interchange property owners are willing to donate land for Hwy 214 widening and local circulation of traffic. (ODOrs $20 million doesn't coverright-o~waycos~) . Ask Woodburn's Public Works Department to demonstrate how traffic will be routed to Oregon Way and Country Club Terrace when all the Hwy 214 driveways are closed. . Explore working with the County to look at need for a second interchange and a truck route. . After all, OOOT can make mistakes. It forecast 19,000 daily Hwy 214 users for year 2005, and actual count in 1998 is 24,000. from the desk of Barbara Luca."t Z14 E. O"ckltnlll.' Circle Woodhurn OR 97//7/ (5/13) 982-8/4/ J,tnU",.)' 3. 2////// .' -::." .' '. '-~ .' ,.:1 - t&: .. 1Q'l'U ~'" h ooof " .' L I ~ ~tl\t.'.'I) (/(,t'" wt:' .,.... ",). n. i .~ ,_I~ IlJ S\lc.~.- I\t,,1 ~ C....,., (\I.....ki ~ l~r.\f.- U Sl"~ -- ......... .... l map from CHAOS AT THE CROSSING The 1-5/HWY 214 Interchange August 1993 by Barbara Lucas B /. -----. ..' - ! ---....~ . . ~ -,' ~' - ~ --- .... .,., ~ " ---= ~\o" Y] ~-:: ~"1f]~ ~bJ~ A&~~ aJ ~~ I ~ ,0~ WlDB II! ~ .' This map appeared in the records of ODOrs Advisory Committee meeting of February 20, 1991, Planning for improvements to 1.5 and Hwy 214 were terminated by ODOT in May 1991, w..,_',' .,.-----or-~"_..~--,.,,--.-..,..,.----...~-.-.-.--.,..--.- .,.,._~-_.,._---,"_' ...a<.L- po'" i / - t, -.,.20 Q 0 ~l?1e ;:7 PP/; crf,- C7")'1 AddrU-> \ '-\ -' ~. '-'..., R l(lvr~ \3;:j /f".--<\~' 5jt tc ,Ire:" Sf-( ((. lef Ib,;,eh- ~.A.h--~~ ~j)v,,\(~ \';;l>-jt, '<<-~~. W~ -ren-~0 ~ . f{4Mt1uM G 23~O f'rUJi.u ~ ~ . -n '^ (J. 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