Executive Summary. Transportation Needs CHAPTER. Existing Conditions

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1 CHAPTER 1 Executive Summary The City of Forest Grove Transportation System Plan (TSP) was updated to keep it consistent with recent growth trends in the city and other transportation planning efforts in the region. The major outcomes of the TSP update for Forest Grove include the following changes, which have been incorporated into this plan: Extends the planning horizon to 2030 Identifies the most valuable transportation system improvements that can be reasonably funded over the next 20 to 25 years Refreshes the capital project list for all transportation modes The adopted 1999 TSP was reviewed and updated to reflect the latest conditions within the city. New data was collected to assess current trends in congestion, access and safety, and compare those findings with work done ten years ago. The future system needs and priorities were adjusted to address existing needs, and to serve growth within the community until at least Several public meetings and work sessions were held to share findings and collect input to the plan update process. The venues for public involvement included City Council and Planning Commission Sessions and the TSP Project Advisory Committee (PAC). The PAC addressed goals and policies related to transportation in Forest Grove, transportation needs by mode (motor vehicles, bicycle, pedestrian, transit, other modes, etc.), strategies for choosing alternatives, and review of transportation alternatives. The PAC also reviewed land use information, travel demand forecasting issues, and coordination with adjacent jurisdictions. Transportation Needs Existing Conditions During the review of current travel and safety conditions around the city, several issues were identified, and these issues were carried into the plan update process: Bicycle activity was highest along Pacific Avenue, Main Street, and Willamina Avenues. Forest Grove Transportation System Plan DRAFT Page 1-1

2 Pedestrian volumes were highest along Pacific Avenue and B Street. The non-motorized vehicle system is most fragmented in the northeast corner of the city, which has pockets of unincorporated lands. Transit ridership data shows the highest demand at bus stops near 19 th Avenue / B Street and 19 th Avenue / Main Street. Since 1998, the largest change in traffic volume resulted from construction of the Highway 47 bypass, which shifted traffic away from Sunset Drive. Volumes on Highway 47 and the Pacific Avenue / 19 th Avenue couplet are generally similar to 10 years ago, with some locations showing minor increases and others showing minor decreases. Two intersections (Highway 47 / Maple Street and Yew Street / Adair Street) were found to be deficient according to operational standards, with traffic volumes already at capacity during the PM peak hour. Vehicles attempting to turn onto the mainline from the stop-controlled side street face significant delay during the PM peak hour. The intersection of B Street / 23 rd Avenue was the only intersection with a collision rate that indicates a safety issue is present. Future City Growth Land use is a key factor in developing a functional transportation system. The amount of land that is planned to be developed, the type of land uses, and how the land uses are mixed together have a direct relationship to expected demands on the transportation system. The expected growth within Forest Grove is summarized in Table 1-1. These projections were used to forecast future travel volumes and determine future needs within the city. Table 1-1: Forest Grove TSP Study Area Land Use Summary Land Use Increase Percent Increase Households 7,784 11,972 4, Retail/Service Employees 3,463 5,301 1, Other Employees 4,454 6,419 1, Source: Metro and the City of Forest Grove Future Transportation Needs Future growth creates a number of deficiencies without significant investment in transportation improvements. The greatest system problem areas are summarized below: Side-street vehicle turns onto Highway 47 at unsignalized intersections 19th Avenue, 24th Avenue, Maple Street, and Martin Way are expected to have very long delays during peak travel hours. Forest Grove Transportation System Plan DRAFT Page 1-2

3 Side-street vehicle turns onto TV Highway at Yew Street Vehicles attempting to turn from Yew Street onto Adair Street and Baseline Street face significant delay as unsignalized intersections in 2030 during peak hours. Connectivity Out-of direction travel increases travel time and can cause increased congestion on roadways and at intersections. David Hill Road, 23 rd Avenue, E Street, and Heather Street have been identified as locations where connectivity should be improved. The capacity deficiencies in the City indicate the need to not only invest in roadway operations and capacity, but also a need to balance investment with other modes of travel to provide improved travel choices and reduce the demand on the system. Significant gaps in pedestrian and bicycle connectivity exist, as detailed in the Pedestrian Plan (Chapter 5) and Bicycle Plan (Chapter 6.) Key pedestrian and bicycle projects proposed include: Highway 47 crossings north and south of Pacific Avenue Sidewalks and bicycle lanes connecting Fern Hill Road, Poplar Street and Heather Street Sidewalks and bicycle facilities on Willamina Avenue, B Street, Thatcher Road Bicycle lanes on Maple Street, Hawthorne Street, and B Street Bicycle Boulevard treatments on 18th Avenue, Goff Road, B Street and Cedar Street Sidewalks on Pacific Avenue east of Highway 47 Multi-use paths along the north and west UGB Alternatives Development The two significant areas of deficiencies (unsignalized intersections on Highway 47 and the Yew Street intersections at TV Highway) were analyzed with a variety of alternatives that attempted to address the identified needs for the study area. Memorandums detailing alternatives analysis for Yew Street and Highway 47 intersections are included in the TSP appendix. Analysis of alternatives to address the issues surrounding Highway 47 was undertaken as part of the Highway 47 Access Management Plan. The recommend projects resulting from the analysis include: Striping a turn lane on 19th Avenue, approaching Highway 47 Constructing a traffic signal at the Maple Street / Fern Hill Road intersection with Highway 47 Constructing a new roadway extension of 23 rd Avenue to Highway 47, including a new traffic signal or roundabout on Highway 47 that also serves as a crossing point for pedestrians and bicyclists Forest Grove Transportation System Plan DRAFT Page 1-3

4 Figure 1-1 Highway 47 Improvements Upon further discussion, the preferred alignment of the extension was identified to be at Martin Road and also include an extension of Holladay Street westward to Highway 47. The resulting intersection would be a five-leg roundabout. Further refinement may occur, pending future analysis for the Highway 47 Access Management Plan or a proposed Refinement Plan Study for the northeast portion of the City. Existing Highway 47 connections at Oak Street, Martin Road, and 24 th Avenue intersections may be closed or modified. The Yew Street at Adair Street Alternatives Memorandum details issues related to the intersection and addresses several alternatives to address the deficiency identified at the intersection. The memorandum is included in the TSP appendix. The TSP has identified a traffic signal to improve operations and safety at the intersection. A long-term solution may include other alternatives. Further study of the area is recommended to identify a long-term solution. Due to the complex and interconnected transportation issues of the northeast portion of the City, the need has been identified for a Refinement Plan Study to further analyze the appropriate longterm solutions for the area. The proposed Refinement Plan Study area would include analysis of: Highway 47 intersections between 19 th Avenue in the south to the proposed Hawthorne Street intersection northwest of the Porter Street/Oak Street intersection. Proposed extension of 23 rd Avenue (east to intersect with Highway 47) and Holladay Street (west to intersect with Highway 47). Connections between Yew Street and Mountain View Lane to east/west roadways including OR 8 (Pacific Avenue), 24 th Avenue, and Holladay Street Feasibility for advancing a coordinated timing scheme for Highway 47 and /or extension of the Pacific Avenue / 19 th Avenue couplet eastward through Highway 47. Forest Grove Transportation System Plan DRAFT Page 1-4

5 The solutions proposed in the Preferred Roadway Plan are considered to be preliminary, and may be modified upon completion of the future Refinement Plan Study for this area. Developing a Financially Constrained Transportation Plan Transportation Funding Through previous planning efforts, transportation studies, and updates to the City s TSP, numerous transportation improvement projects have been identified to address future needs. While this broad set of system solutions remains applicable to existing and future needs of the transportation system, the large set of projects was not developed with current fiscal constraints and totals over $100 million. This level of transportation investment, even with support from other agencies, cannot be reasonably funded with anticipated City transportation revenues of approximately $51.9 million through the year 2030, particularly with approximately $29.4 million in estimated costs for operations and maintenance programs. The costs of identified transportation projects to achieve the desired transportation network (Preferred Plan) exceed the reasonably expected funding levels. Since funding is not available for the entire set of identified projects, a subset of projects that can be reasonably funded (Revenue Forecast Scenario Plan) must be selected for prioritization and implementation. One purpose of the TSP is to determine the projects and programs that provide the greatest benefit to the transportation system through the available funding resources. Projects that were identified for the Revenue Forecast Scenario project list not only addressed an identified need for the transportation system, but also need to be reasonably likely to be funded. The projects included were selected based on the following criteria: Consensus projects previously identified in coordination with other jurisdictions (i.e. Metro RTP and Washington County MSTIP). Existing Need projects that address an existing need as opposed to a projected future deficiency. Demonstrated Need projects that are consistently needed to address deficiencies across multiple alternatives. Cost Effectiveness projects that fit within available funding All other identified projects continue to be recognized as Preferred Plan projects, meaning if unanticipated funding sources become available, they may still be pursued for implementation. Forest Grove Transportation System Plan DRAFT Page 1-5

6 Revenue Forecast Scenario Projects Based on the prioritization of investment in transportation facilities, a financially constrained Revenue Forecast Scenario Plan was developed. The Plan projects include a mix of operational, capacity, and connectivity improvements for all modes of travel on City, County, and ODOT facilities. Table 1-2 identifies the plan projects and summarizes the estimated total cost of the projects, as well as the estimated cost to the City. As listed, the planned City of Forest Grove funding amount (approximately $22.4 Million) is significantly less than the unconstrained Preferred Plan project list and is reasonable to achieve over the next 20 to 25 years. Plan priorities and funding recommendations for other agencies are recommendations from Forest Grove on how best to invest limited resources to serve future travel needs within the City. Forest Grove Transportation System Plan DRAFT Page 1-6

7 Table 1-2: Revenue Forecast Scenario Plan Projects (2009 Dollars - Millions) Line # Name Description Purpose 1 David Hill Road Construct new roadway Improve connectivity Extension from existing terminus to and balance Highway 47 circulation. 2 Highway 47 / Pacific Avenue 3 Martin Rd. / Highway 47 4 Hwy 47and B Street 5 Fern Hill /Maple Street / Highway 47 Additional channelization, crosswalk, and traffic signal modification at intersection. Specific improvements may be modified at a future date. Construct improvements (e.g. round-about) at Highway 47 intersection with Holladay Street Extension, Martin Road, and 23rd Ave. Extension Construct improvements (e.g. traffic signal.) Construct improvements (e.g. traffic signal) at Highway 47 intersection with Maple Street / Fern Hill Road, including interconnect with rail crossing Improve access and mobility. Improve substandard turn radius and pedestrian crossing. Improve operational deficiencies. Improve access and mobility. Improve operational deficiencies. Improve operational deficiencies. Financially Constrained Jurisdiction Owner/Operator Metro Project ID**** /Reasonably Likely to be funded Total Cost City Funds City Yes $7.10 *** $3.50 ODOT Yes $4.10 ** $2.00 ODOT Yes $1.50 ** <$0.10 ODOT Yes $0.30 ** <$0.10 ODOT Yes $1.30 ** $0.40 Forest Grove Transportation System Plan DRAFT Page 1-7

8 6 23rd Avenue Extension 7 Highway 8 / Pacific Ave. / 19 th Ave. 8 Thatcher Road Realignment 9 High Capacity Transit Expansion Extend from Hawthorne Avenue east to Highway 47. Retrofit street with boulevard design from B Street to City Limits Realign intersection at Thatcher Road at Gales Creek Road Analysis for proposed extension of light rail service from Hillsboro to Forest Grove. Improve connectivity and balance circulation. Improve access to industrial areas. Improve safety and modernization. Eliminate substandard angles and improve intersection spacing. Improve access to labor markets and trade areas. Improve transit access to West Washington Co., connect the Pacific University campuses in Hillsboro and Forest Grove, accommodate growth with less traffic, encourage transit oriented development, supplement and relieve Hwy. 8, and reduce oil dependency. City Yes $18.60 **/*** City & ODOT Yes $15.00 **/*** City & Washington County $5.60 $2.40 NA Yes $4.50**/*** $2.00 TriMet Yes $2.20 ** $1.24 Forest Grove Transportation System Plan DRAFT Page 1-8

9 10 Council Creek Trail 11 Bike Lanes and Sidewalks 12 E St. / Pacific Ave. / 19th Ave. Multi-use trail from Hillsboro to Banks. PE Project multi-use trail from the end of the Westside MAX light-rail line in Hillsboro, through Washington County, the City of Cornelius, the City of Forest Grove, the City of Banks, connecting to the Banks-Vernonia State Trail, with an additional short trail extension south connecting to the Tualatin River. Address various network gaps within City Extend 19th Avenue west and connect to E Street and Pacific Avenue with round-about. Complete gap in system and improve safety and access to Cities. Complete gap in system and improve safety and access to town center. Improve connectivity and balance circulation. TBD Yes $5.00 ** $1.10 City Yes $3.60 ** $2.00 City Yes $6.00 *** $ rd Avenue / B Street Improvements Add stop signs on 23rd Avenue approaches and/or warning signs on B Street ahead of stop signs to address high crash rate at the intersection Safety Improvement to reduce crash rate City NA Yes <$0.10 <$0.10 Forest Grove Transportation System Plan DRAFT Page 1-9

10 14 Hwy 47 and Purdin Rd Construct improvements at Highway 47 (e.g. round-about) to connect Purdin Road and Verboort Rd. Improve operational deficiencies. ODOT Yes $1.50 ** <$0.10 TOTAL: $70.2M $22.4M Source: City of Forest Grove Notes: *Project would require ODOT approval. **Partially or fully funded by jurisdictional agency (i.e. TriMet, ODOT, Washington County or Metro) ***Partially or fully funded by private development exactions. **** Included in the financially constrained project list of the Regional Transportation Plan (RTP) update. Estimated share of City Cost provided by City of Forest Grove. Forest Grove Transportation System Plan DRAFT Page 1-10