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Agenda - 12/06/2004 Workshop CITY COUNCIL/PLANNING COMMISSION JOINT WORK SESSION CITY HALL COUNCIL CHAMBERS 270 MONTGOMERY STREET WOODBURN, OR 97071 MONDAY, DECEMBER 6,2004 6:30 P.M. AGENDA 1. Call to Order and Flag Salute 2. Roll Call 3. Draft Transportation System Plan - Continued Discussion of Proposed Changes to the Woodburn Transportation System Plan Recommendation: Receive presentation, discuss proposed chanQes, and provide guidance as appropriate. 4. Adjourn '.. 'f''' I MEMORANDUM CH2MHILL Woodburn TSP - Joint City Council and Planning Commission Work Session #2 - Summary Recommendations DATE: Jim Mulder, City of Woodburn Randy Rohman, City of Woodburn Terry Cole/ODOT Region 2 Steve Perone, CH2MHILL Julia Kuhn, Kittelson & Associates September 27, 2004 TO: COPIES: FROM: This memorandum addresses four key issues raised during the Joint Work Session held on September 20,2004 between the City Council and Planning Commission regarding the Woodburn Transportation System Plan (TSP). These issues include: . Need for sidewalks in Senior Estates . Need to designate Settlemier as a historic corridor with modified street design standards . Need for a new north-south Collector west of Settlemier . Prioritization of improvements within the TSP Additional information regarding each of these issues is provided below. SIDEWALKS IN SENIOR ESTATES Councilor Cox noted in his supplemental memorandum dated September 29th memorandum that the residents of Senior Estates have a number of concerns about the identified need for sidewalks within their development. Some of the concerns raised include: . Senior Estates is a fully developed community that is functioning well without sidewalks today. . The construction of sidewalks would require the removal of existing trees and front yard landscaping. . The construction of sidewalks within Senior Estates is not a judicious use of public funds. We recommend that sidewalk designations reflected in the current draft TSP should be maintained for the following reasons: . As shown below in the excerpt from Figure 7-3 of the draft TSP, the need for new sidewalks within Senior Estates is identified on Astor Way between ORE 214 and Country Club, on Country Club and on Oregon Way and Cascade between 214 WOODBURN TSP - WORK SESSION #2 PLANNING 185701 '.. r WOODBURN TSP - JOINT CITY COUNCIL AND PLANNING COMMISSION WORK SESSION #2 - SUMMARY RECOMMENDATIONS and Hayes. These sidewalks are necessary to safely connect the neighborhood to the commercial areas along ORE 214, a link to downtown, and to the transit stops on Boones Ferry Road and ORE 214 in the future. GARDEN . . c::: ~ Z CONSTII'UTD v. -0Y c?' o ~ I:-< ...:J b 2j ......~......g ~ ~ ~ '''''' ~ c.ri b 8.< ~A:N1ER ;J ::r: t<( (j ";'.................... .............. I' 1 COUNTRY ChUB -') . . . . . . . . ~?: r. . ,.- , .. 0'=: K4 ..l:i ..... ..... . : E..D: :z; ... .c,1V.I? Ys <"~I ~!~~!Ay~m tc o./'':( " ;=-"~~~~~~ ....... .{'-' . ,., """"""'~""'-';:.~. So.J: ~-. 11 ;: :: . .. : ': .. " '. /. . II F:N ZER ~ t:rl ..1"" . . ~: ~ ~: , ~ u: he] :~ ~ ~ i............!~!!.~.? LN tJ' I: u 1 ................l..~...;l. ; <Y : 'fJ:J ~ -.. I : y::r: " : HAYES .... \<::,Y5 ."""~...~...............' . <6 ." .~- ....... ...... ...~ (r) ?r' Figure 1: Senior Estates Sidewalk Network . The Transportation Planning Rule (TPR) 660-012-0045(3)(b )(B) states that "Sidewalks shall be required along arterials, collectors and most local streets in urban areas./I Both Country Club and Astor Way are classified as access streets, not local streets. The primary function of these facilities is to connect Senior Estates with the adjacent arterials. Given this definition, sidewalks are required by the TPR. . The roadways and right-of-way along these streets are of sufficient width today to allow construction of sidewalks without impacting existing front yards or landscaping. This is especially true on Astor Way where the existing street is wider than required. Sidewalk improvements along Oregon Way may be more difficult to site a sidewalk on both sides since all lots face the street. A wider sidewalk similar to the one constructed on Hayes street may be more appropriate for this street. There is a similar problem on Cascade for the portion of the street that has homes PDXlWOODBURN TSP - WORK SESSION #2 SUMMARYRESPONSEV2 2 '.. r WOODBURN TSP - JOINT CITY COUNCIL AND PLANNING COMMISSION WORK SESSION #2 - SUMMARY RECOMMENDATIONS on the west side. There is no housing on the east side of Cascade, however, and a wider sidewalk on the east side only across from the existing housing may serve the pedestrian needs for this street. . The intent of the TSP is to provide a vision for the future transportation system. Rather than subjecting future residents to the current constraints of the transportation system, it is prudent to plan for safe and convenient pedestrian connections in the future. . Finally, the construction of sidewalks along both streets will occur as opportunities arise and funding becomes available. As noted by Councilor Cox, the city does not intend to use a local improvement district (LID) to construct these sidewalks. It will be advisable to seek public funds for these improvements in the long-term. DESIGNATION OF SETTLEMIER AS A HISTORIC CORRIDOR The City Council and Planning Commission expressed the need to identify" context sensitive" solutions for Settlemier that recognize the existing built environment along the corridor. In the future, Settlemier is anticipated to carry 14,000 vehicles per day and will continue to be an important part of the city's arterial street system. Typically a roadway of this significance and traffic volume would require on-street bicycle lanes and a center turn lane/median to ensure safety and comfort for all modes of travel. The construction of a center turn lane and on-street bicycle lanes would necessitate the acquisition of additional right-of-way and would impact the existing mature shade trees located adjacent to the right- of-way. As discussed at the work session, these trees are an important part of Woodburn's heritage and represent a significant aesthetic benefit to the community. To preserve the trees while still providing for safety and mobility, we recommend that the TSP be modified to reflect the following: . The need for on-street bicycle lanes should deleted on Settlemier between ORE 214 and Cherry. On this section of the roadway, cyclists and motorists will "share the road." . A signed bicycle route should direct cyclists north of ORE 214 into the downtown via the 5th and Meridian. Cyclists originating south of ORE 214 would be signed into the downtown via the east-west facilities. . Proposed ordinance language to reflect the historic designation will be added to Chapter 9 for consideration and adoption by the City. This language will reflect that bicycle lanes are not required and that a center left-turn lane will only be provided at locations warranted for safety reasons. At these locations, the existing pavement will be utilized to the extent possible to add the left-turn lane. This language would ensure that narrower travel and turn lanes would be permitted to preserve the corridor. Figure 2 illustrates the proposed changes as recommended above to provide safe bicycle travel with the distinct designation described above on Settlemier. PDXlWOODBURN TSP - WORK SESSION #2 SUMMARYRESPONSEV2 3 '.. i WOODBURN TSP - JOINT CITY COUNCIL AND PLANNING COMMISSION WORK SESSION #2 - SUMMARY RECOMMENDATIONS 'ii.iii.:~ ..~.. . H p::; ,. ,::) . . . C':)UIJTHY CLUB .: . . . . .z; ,.-. :?; ,; t'Jl R y:~, .~ a ,A.'Y_'\;\J,~rA :' . --L.__~_ '"-'":>-"__-..,::' . . ,. " . '. . . R~ u F!J:EF TEE n ..f, '-y ff_; ,~ :_J LI:i!~:(:' I...1-J .-~ JAM ES =~i .,; Cl.; El\YES ',:'!\TS (-I' ",. .// be) " <'~> .~// ('I: /"~'" ...;f/ " -<.// I .~/ : ,.~/ ." .~r/ I ...</ _--,' II .~./'/ Figure 2: Historic Corridor Designation and Alternative Bicycle Facilities _!t' "?' Sl:.;; <9". Ll'-\NDA YE NEW NORTH-SOUTH COLLECTOR WEST OF SETTLEMIER At the work session, the City Council and Planning Commission requested us to evaluate the potential for a new north-south collector west of Settlemier. They felt that a collector could provide relief to the Settlemier corridor thereby further preserving the historic nature of the corridor. Following the work session, we assessed the likely feasibility of constructing a facility of this nature given the existing built environment and we modeled the potential connection to ascertain the benefits of such a connection. This analysis was performed for two alternatives: a new collector between Hayes Road and Parr Road and, a new collector between Parr Road and ORE 214. The likely location for this type of facility would be to the west of McLaughlin. The results of our analyses are summarized below. PDXlWOODBURN TSP - WORK SESSION #2 SUMMARYRESPONSEV2 4 '.. '1"' WOODBURN TSP - JOINT CITY COUNCIL AND PLANNING COMMISSION WORK SESSION #2 - SUMMARY RECOMMENDATIONS Modeling Analysis The city's EMME/2 model was employed to estimate the potential diversion of traffic associated with a new collector. The results of this analysis are summarized in Table 1. Location Alternative TSP Alternative Parr - Hayes Parr - ORE 214 Settlemier 14,000 14,500 10,000 Hayes 8,000 9,000 10,000 west of collector; 5,000 to east Lincoln 6,500 4,500 2,000 west of collector; 7,500 east of collector Cascade 4,000 3,000 < 1,000 New Collector N/A 2,500 south of Hayes 10,000 north of Lincoln: 3,000 south of Hayes Comparison of Key Average Daily Volumes As shown in Table 1, the provision of a new collector south of Hayes Road does not alleviate future demand on Settlemier. The provision of a collector between Parr Road and ORE 214 could reduce volumes on Settlemier by 4,000 vehicles per day although this level of reduction would not be sufficient to change the functional classification of Settlemier. For this reason, the historical corridor preservation measures discussed above should be employed to protect the existing Settlemier corridor. Construction Feasibility In addition to the modeling exercise, we also performed a field visit to perform a preliminary assessment of the feasibility of constructing either of the potential collector facilities. This assessment focused on the opportunities and constraints of the existing built environment. Highlights of our review include: . From the south, a future collector could potentially connect to Hayes to the east of the Nellie Muir School. A connection north of Hayes would require the acquisition of existing built properties. . The extension of Cascade to Parr Road or an east-west connection to Cascade would require the acquisition of existing homes. . Given the existing alignment of ORE 214 and the existing built environment, the most logical location for the collector to connect to ORE 214 would be opposite Astor Way. This type of connection would require acquisition of existing built properties. Given the anticipated volume on the collector, the Collector / Astor / ORE 214 would likely warrant a traffic signal. Given these constraints, it does not appear feasible to construct a new collector roadway to the north of Hayes Road without significant property impacts. A collector facility south of Hayes Road could be provided for future connectivity purposes. PDXlWOODBURN TSP - WORK SESSION #2 SUMMARYRESPONSEV2 ".. ,.. WOODBURN TSP - JOINT CITY COUNCIL AND PLANNING COMMISSION WORK SESSION #2 - SUMMARY RECOMMENDATIONS Other Options A local street grid system should also be constructed as properties develop within the UGB expansion area. This local street system would provide alternatives to Evergreen and Settlemier for north-south travel and would be constructed as development occurs thereby working within the constraints of the existing built environment. The grid system concept serving this area is depicted in the figure below. ,/--A77~~~~)~7r----------~,:,: ~; j ~; --;- ~ I III . .:r, . // ~l ) !~ L]NC:;)L~'; .: ,--..........; ............. .-~';> , ;.......... :......~~~'; ..f' ", ....... ..., ...-------------.-----.:L:::'~C~E_______._________../ c;f'"x:: . . <I ,~~..~ ({ , t ~~~<S~~-) :' ~~~~' ; r,_ _ ... I~.....~..~~;)v>~ ., .....~~ f '<!~) ,~" ...." lq .It "" 4~-t ~I ~'l' i:l1;'J~Y j:; : ~);(/ /:/1 ~.I// '/;,~~/ I( ..// /' iP ! bY :i:-}/ 4"/ f _~!~ -..--~_.~~------__1.Jtt/ .. {/ :4' r /,. /;/." /.~/l /''/ ~ /~/ I /)~'/ l ".:. ,It / . / . / ~ / ~ Figure 3: Conceptual collector street network to support nodal development ,- C/.' <(' .-....,.""""....'hM.P...'....",..."",......... ! I i ','.", rCi;" t<~/,f ",l' , (... I I I I I . . I I I i PROJECT PRIORITIES The City Council and Planning Commission requested that the improvement projects be prioritized within the TSP to assist in the identification of projects for the city's Capital Improvement Project (CIP) list. A recommended prioritization list is provided below. Next Ten Years . Reconstruct the ORE 214/0RE 219/1-5 interchange to a partial cloverleaf design in accordance with the Interchange Environmental Assessment. Improve ORE 214/219 to a major arterial standard between Woodland and Oregon Way. . Widen ORE 214/219 to full major arterial standards (five-lane cross section with sidewalks and bike lanes) between Butteville Road and ORE 99E. PDXiWOODBURN TSP - WORK SESSION #2 SUMMARYRESPONSEV2 6 '.. ,.. WOODBURN TSP - JOINT CITY COUNCIL AND PLANNING COMMISSION WORK SESSION #2 - SUMMARY RECOMMENDATIONS . Widen ORE 99E to full major arterial standards and implement access management strategies between Lincoln and the south city limits. . Extend Evergreen south to Parr Road . Upgrade 5th Street to access street standards. . Add turn lanes at the Boones Ferry /ORE 214 intersection. . Signalize the Front/ORE 214 loop ramps. . Increase service frequency on the existing transit routes. . Establish a park-and-ride near the ORE 214/1-5 interchange. Ten to Fifteen Years . Upgrade Crosby to minor arterial standards. Upgrades will occur with new development and after the UGB is expanded. . Upgrade Parr Road to service collector standards. Upgrades will occur with new development and after the UGB is expanded. . Upgrade Boones Ferry and Front to ensure that continuous bike lanes and sidewalks are provided along both corridors. · Extend Stacy Allison south to Parr Road. . Construct a new service collector between the Evergreen and Stacy Allison extensions. . Construct a new loop ramp in the southwest quadrant of the ORE 214/Front Street intersection. . Add a westbound left-turn lane at the ORE 99E/ORE 214 intersection · Add turn lanes at the Parr Road/Settlemier Road intersection. . Signalize the 5th/Merdian/ORE 214 intersection. . Convert the existing transit route to two-way operations. · Develop the off-street pathway for pedestrians and cyclists along the Mill and Goose Creek corridors. Fifteen to Twenty Years . ORE 99E: widen to full major arterial standards and implement access management strategies between the south city limits and the south UGB. . Construct the South Arterial from Butteville Road to ORE 99E. . Terminate Parr Road to the east of Butteville Road and connect it to the South Arterial . Upgrade Brown Street and extend to the South Arterial. . Upgrade Crosby Road to service collector standards. · Install a signal and turn lanes at the northern Butteville Road/ORE 219 in tersection. PDXlWOODBURN TSP . WORK SESSION #2 SUMMARYRESPONSEV2 7 '.. T''' WOODBURN TSP - JOINT CITY COUNCIL AND PLANNING COMMISSION WORK SESSION #2 - SUMMARY RECOMMENDATIONS . Install a signal and turn lanes at the southern Butteville Road/ORE 219 intersection. . Signalize the Cleveland/ORE 99E intersection. . Signalize the Park/ORE 214 intersection. . Create two transit routes with one-way or two-way operations. · Construct needed sidewalks on existing service collectors, access and local streets. · Construct bicycle lanes on Garfield, Hardcastle and Young. Funding Transportation Projects - Capital Improvement Program The city prepares a six year capital improvement program (CIP) as part of the annual budget process. In the annual update process, city staff (department heads) formulate recommendations based on a range of programs and identified future needs as outlined in master plans like the TSP. The evaluation process includes consideration of available funding from grants, local improvement districts and other sources. Prom this information, a prioritized list is developed and projects are placed in the CIP year that is determined to best fit the project and for which funding is expected to be available. In the annual update process, projects from existing CIP are often carried forward but, often new projects are developed and shifts in project year priorities are expected. The CIP is presented to the city budget committee for review and approval. Over time, most TSP projects are incorporated into the CIP program for work on the state roadway system or the major upgrades on city streets program. In addition, some TSP projects may be eligible for inclusion in the CIP program associated with the city's urban renewal district. Please let us know if you need any additional information regarding the issues discussed at the work session. PDXiWOODBURN TSP - WORK SESSION #2 SUMMARYRESPONSEV2 8 '.. r- Mary TGnnant - Cox TSP Memo 9-04.doc Page 1 MEMORANDUM Date: September 29, 2004 To: John Brown, City Administrator From: .Jim Cox, City Council Re: D."aft TSP revisions At the end of the Council/Planning Commission work session it was getting late, and we ran out of time and energy. I said I would submit a memo on an issue of great concern to me and the residents of Senior Estates. This is the promised memo. Sidewalks in Senior Estates The draft TSP proposes new sidewalks in locations where, as a practical matter, they will never be builL at least in the 20-year plan period. These sidewalks will not be built even If it were foreseeable that we would have the money to build them-which we do not have and undoubtedly will not have. Since Senior Estates is a fully developed, pretty much self-contained area, it is unlikely there will be a significant traffic increase on these residential streets. Over 40 years ago Senior Estates was approved for development \vithout SIdewalks. In hindsight that may have been a mistake. But that is the way it was done. It has worked for 40+ years. Senior Estates probably has more pedestrian traffic than any other residenlial area in the City. All one has to do to demonstrate this is to dnve around Senior Estates early in the moming. Senior Estates residents do not want sidewalks. The present arrangement works. To my knowledge there has never been a vehicle-pedestrian accident in Senior Estates that could be attributed to a lack of sidewalks As the saying goes, "Ifit ain't broke, don't fix it." The questionnaires filled out at the Senior Estates' Community Relations Committee meeting showed that an overwhelming majority did not want sidewalks--even afler Randy Rohman had appeared at the meeting and assured the people that they would not have to pay for the sidewalks through an LID. The people were rightly concerned that installation of sidewalks would unnecessan ly damage their trees and landscaping and would reduce the spaciousness of theIr front yards. I'm sure that they were also concemed about a proposal that would expend public funds on what they regard as unnecessary projects. I believe that including projects in a long-range plan is an implied commitment by the City 10 implement those projects if it can. If something is impractical, unwanted and unfeasible during the plan's lifetime. it should not be put in the plan. Putting things in a plan when we are not really serious about accomplishing them is bad policy. It can have unintended and unknown consequences, and it detracts from the credibility of government. .. 'r" ~~ary Tennant - Cox TSP Memo 9-04.doc Page 2 2 Prior to the w,orkshop joint meeting I met with you, Randy Rohman and Jim Mulder. At first I was told that the sidewalks were in the plan because LCDC required them. I pressed for the source of LCDC's "requirements" and was referred only to general guidelines that a plan should include a network of sidewalks to accommodate pedestnans, particularly on arterial and collector slreets (or something 10 that effect). I poinled out that the streets in question were not designated arterials or collectors in the dratl plan (lhough some of the streets are designated "access streets"). I was then told that It was the Judgment of the consultants and/or staff that these sidewalks were needed to provide a connected network in residential areas. In other words, they backed off the contention that these sidewalks were specifically required by LCDC. I then pointed out that the proposed sidewalk on Country Club between Princeton and Astor dead-ended and did not connect with anything. I was told that, in any case, it was still the consultant's and/or the staffs position that all the sidewalks were needed. I respectfully disagree with tl1lS position. Of course the final policy decision as to whether they are to be included is for the COLl11cd. not the staff or the consultants. Specifically. the sidewalks that I object to are proposed [See Figure 7-3] for the f()llowing locations: I. Country Club from Astor west to Princeton. 2. Astor from Hwy. 214 north to Country Club. 3. Cascade from Hwy. 214 south to Hayes. 4. Oregon Way from Hwy. 214 south to Hayes. The portions of Country Club and Cascade that I am talking about are local l"Csldentwl streets 111 the draft TSP. Oregon Way and Astor north to Country Club are deSignated "access streels." However, there is nothing in the draft TSP to indicate a change in street plans that would generate new traffic onto those access streets beyond thaI which is now generated by the already-developed properties that use those streets. The character and use of those access streets will remain about the same as it is now. All four of the above-mentioned streets are developed with homes and are functioning well without sidewalks. There is nothing in the new plan to indicate that the situation will change substantially in the future. Children do not use these streets to get to and from school. There IS no need to shoehom in sidewalks that are unnecessary, unwanted and expensive. As 1 said at the last Council meeling, I was told by staff a year or so ago that the trJffic counts were 1I1sufficient on Astor and the streets that intersect it to the west to Justify stop signs. If the traffic is too low to Justify stop signs, it is hard for me to see how we can say there is sunicient traffic to justify the need for sidewalks. After all, the justification for requiring sidewalks is to protect pedestrians from dangerous levels of vehicle traffic. As a separale issue, I cannot understand why sidewalks are shown on most of i ~,J .. r Mary T~nnant - Cox TSP Memo 9-04.doc Page 3 3 Hwy. 214, but are not shown as existing or proposed between Oregon Way and Cascade. /\. sidewalk eXists on the south side, and is needed on the north side. Certainly sidewalks on both sides will be built as part of Hwy. 2]4 improvement. Was the omission of this section an oversight'? .. r