HomeMy WebLinkAboutItem A - Freight Rte AnalysisEUGENE CITY COUNCIL
AGENDA ITEM SUMMARY
Work Session: Statewide Freight Route Analysis Project
Meeting Date: November 17, 2004 Agenda Item Number: A
Department: Public Works Staff Contact: Chris Henry
www. cl. eugene, or. us Contact Telephone Number: 541-682-8472
ISSUE STATEMENT
The Oregon Department of Transportation (ODOT), through the Freight Route Analysis Project
(FRAP), is seeking comments regarding designation of additional freight routes statewide. The record
has been held open until January 7, 2005, for comment. Within Eugene, additional freight routes
proposed are: Beltline Highway, West 11th Avenue (from Beltline Highway to the west), and Highway
99W (north of Beltline Highway). ODOT staff will review the freight route designation process with
the council at the work session on November 17, 2004 (a copy of the presentation will be made available
at the work session).
BACKGROUND
Currently, the only freight route designations in Eugene are along Interstate 5 and Interstate 105. The
current proposal is to add routes along Beltline Highway, West 11th Avenue (west of Beltline Highway)
and Highway 99W (north of Beltline Highway). Details of the Freight Route Analysis Project (FRAP)
can be found at: http://www.odot, state.or.us/tdb/planning/FRAP.htm. Included is a 22-page staff report
dated September 1, 2004, maps and proposed changes to the Oregon Highway Plan (OHP).
The Oregon Department of Transportation began a review of the state highway freight system in 2004
and formed a Freight Route Analysis Project committee representing various stakeholder groups to
participate in the discussion and designation of new freight routes on state highways. The committee
advised on criteria for route designation and made recommendations of routes to be considered for
designation. While still a significant increase (43% more miles of State Highway Freight Routes than
existing), the initial recommendation for route designations was substantially larger that the current
proposal for consideration. The proposed changes to designations and policies would amend the OHP.
ODOT is scheduled to present those changes to the Oregon Transportation Commission (OTC) at its
April 20, 2005, meeting, followed by a public hearing at OTC's May 18, 2005, meeting in Salem.
Consequences of the proposed freight route designations include increased (more stringent) mobility
standards to reduce the congestion on those routes. For example, a statewide highway within an urban
growth boundary not on a freight route currently has a maximum volume-to-capacity (V/C) ratio of
0.80. With a freight route designation, the V/C ratio would change to 0.75. Therefore, designations will
lead to more rigorous standard review of plan amendments and zone changes. The effect on design of
highways and intersections may include additional travel or turning lanes to provide additional capacity
to meet projected demand, roadway widths, median barriers and other factors. Pavement design would
also be affected by freight route designation to accommodate anticipated truck loadings. In addition, the
freight route designations would impact design and spacing considerations for access management
approach permits.
L:\CMO\2004 Council Agendas\M041117\S041117A. doc
The Lane County Board of Commissioners held a public hearing on the proposed statewide freight
routes on October 13, 2004 (the record was held open until October 20, 2004). On October 14, 2004,
the Metropolitan Policy Committee (MPC) discussed the freight route designations and sent a letter to
ODOT requesting more time to consider the issue (the comment period has since been extended until
January 7, 2005). The Lane County Board of Commissioners again discussed the issue on October 20,
2004, and subsequently sent two letters of comments and questions to the county legislative delegation
and the OTC on October 27, 2004.
RELATED CITY POLICIES
Relevant objectives and policies from TransPlan include:
Objective #1: Accessibility and Mobility - Provide adequate levels of accessibility and mobility for
the efficient movement of people, goods, and services within the region.
Objective #4: Economic Vitality - Support transportation strategies that improve the economic vitality
of the region and enhance economic opportunity.
Transportation System Improvements: System-Wide Policy #2: Intermodal Connectivity -
Develop or promote intermodal linkages for connectivity and ease of transfer among all transportation
modes.
Transportation System Improvements: Goods Movement Policy #1: Freight Efficiency - Support
reasonable and reliable travel times for freight/goods movement in the Eugene-Springfield region.
COUNCIL OPTIONS
Not applicable.
CITY MANAGER'S RECOMMENDATION
Not applicable.
SUGGESTED MOTION
Not applicable.
ATTACHMENTS
A. ODOT Freight Route Analysis Project (FRAP) Staff Report, September 1, 2004
B. ODOT State Highway Freight System Recommended Revisions for Eugene Area (map)
FOR MORE INFORMATION
Staff Contact: Chris Henry, Transportation Planning Engineer
Telephone: 541-682-8472
Staff E-Mail: chris.c.henry~ci.eugene.or.us
L:\CMO\2004 Council Agendas\M041117\S041117A. doc
Freight Route Analysis Project (FRAP)
Staff Report
September 1, 2004
I. Introduction
The staff report below is in response to a request the Oregon Transportation Commission (OTC) made at
its January 2004 Commission meeting. At that meeting, the OTC approved the changes to Policy lB of
the 1999 Oregon Highway Plan (OHP). The key components of this revision were to simplify the
highway segment designation process by recognizing existing characteristics and requiring written local
government support prior to the designations. It was during this process working with a variety of
stakeholders that concern was expressed about the impact of these and future highway segment
designations on freight routes. Both the stakeholders and the OTC felt that with the revisions to the lB
policy it was also appropriate to evaluate both the actual designations of the freight routes and the
methodology that was used to determine their designation.
As part of that effort, an advisory committee was formed to participate in the discussion and designation
of new freight routes on state highways. Freight Route Analysis Project (FRAP) committee members
include representation from the Oregon Trucking Associations, local government, a Metropolitan
Planning Organization (MPO), Freight Advisory Committee, an Area Commission on Transportation
member, a port representative, Department of Land Conservation and Development, Association of
Oregon Counties, Federal Highway Administration, League of Oregon Cities, and the Retail Task Force.
This led to a series of meetings with the committee. As part of their recommendations they provided
input on what might need to be considered in designating freight routes. Through these discussions,
members also advanced routes to be considered for designation beyond those recommended by staff.
The report below summarizes the work to date with recommended changes to both freight route
designations and associated OHP policies. The staff report highlights information from the current OHP
as it relates to freight policy and definition. It also summarizes the methodology used in that process.
The information following that discussion highlights the significance of the freight designation to other
aspects of transportation, such as planning and highway design issues. The report then discusses the
criteria and factors that were used in the evaluation of the additional freight routes being proposed. The
revisions, both to the analytical work and the designations, require amending the language of the freight
policies. The proposed policy changes are highlighted in Section VI of the report. Finally, there is a
discussion of the proposed designations and their potential impacts to the transportation system.
The State Highway Freight System, along with the freight systems established at the regional (MPO),
county and city levels, link together and identify the roadways within the state that are important for the
movement of freight. Because the policy implications of the State Highway Freight System and its
relationship to other highway plan policies applies to state highways, the specific designation
recommendations in this report apply only to state highways. In order to recognize the interrelated
characteristics of the freight system, there are proposed changes to the policy actions to recognize the
coordination necessary with local government (see Action 4.A.B).
The next steps are to provide this information to interested stakeholders for their review and comment.
Those comments will be forwarded to the FRAP committee for their consideration. The final product will
be a recommendation to the OTC which will require a public hearing before the Commission. This public
hearing is tentatively scheduled for the December OTC meeting, ultimately resulting in an amendment to
the OHP.
DRAFT September 1, 2004 1
II. 1999 Oregon Highway Plan Freight System Policy and Definition
According to the 1999 Oregon Highway Plan, the purpose of the State Highway Freight System is ~...to
ensure that freight is able to move efficiently on the state's major trucking routes." The key criteria for
freight route designations were freight volume, tonnage, connectivity, and linkages to National Highway
System (NHS) intermodal facilities as documented in the OHP. This freight system, made up of the
Interstate Highways and certain Statewide Highways on the NHS includes routes that carry significant
tonnage of freight by truck and serve as the primary interstate and intrastate highway freight connection to
ports, intermodal terminals, and urban areas." The current OHP designates 2,092 miles of Interstate and
Statewide Highways as State Freight Routes. About 1.5 miles are on District Highways.
The OHP states in Policy lC - State Highway Freight System that:
~It is the policy of the State of Oregon to balance the need for movement of goods with
other uses of the highway system, and to recognize the importance of maintaining
efficient through movement on major truck freight routes."
Its four actions call for the following:
1. Applying performance standards appropriate to the movement of freight on freight routes.
2. Preparing a statewide freight study to address the role of trucks and other freight modes in Oregon's
economy.
3. Working with local governments to examine options
· To treat designated freight routes as Expressways; and
· To recognize and balance freight needs with needs for local circulation, safety and access in
Special Transportation Areas.
4. Considering the importance of timeliness in freight movements in developing and implementing plans
and projects on freight routes.
A. Development of the 1999 Oregon Highway Plan Freight Policy
When the 1999 Oregon Highway Plan was being developed, the System Definition Policy Committee
examined the statewide highway classification system and its functions. The committee decided that the
1991 Highway Plan Access Oregon Highway system was no longer relevant, that the new federal NHS
and OHP Statewide Highways were essentially the same, and that one classification system with overlays
was needed. With an overlay, this additional distinction provided a heightened awareness of one of the
primary management objectives of that highway segment. Ultimately, this committee kept the basic
classification system of Interstate, Statewide, Regional and District Highways and developed overlays for
lifeline routes, scenic byways, freight and land use as well as expressways. Later, prior to adoption, the
OTC added Local Interest Roads to the system.
During development of the 1999 OHP, the role of investment was modified and management strategies
were outlined in the OHP Background statement saying:
~Highway efficiency for goods movement in an expanding economy will require public and private
investments in infrastructure as well as changes in road operations to reduce congestion on freight routes.
Designating a network of freight routes of primary importance to the state will help ensure that these
investments are coordinated in a way that reinforces the unique needs of the freight system .... "(italics
added for emphasis)
DRAFT September 1, 2004 2
B. Balancing Interests in the 1999 Oregon Highway Plan
The 1999 policies, along with amendments adopted in January 2004, carefully balance the interests of
freight and other long-distance travelers with the interests of communities that the highway runs through.
Mobility interests are served by the OHP freight routes and Expressways. OHP freight routes on
Statewide Highways have higher mobility standards, that is, they allow less congestion. In urban areas,
the mobility standard is .05 v/c higher on Statewide Freight Routes than on Statewide Non-Freight
Routes. Expressways also have higher standards. Management plans are required for Special
Transportation Areas (STAs) and Urban Business Areas (UBAs) on OHP and Regional freight routes in
order to meet the needs of freight interests as well as the local community. Special Transportation Areas
have lower mobility standards, allowing more congestion.
iii. Implications and Significance of Oregon Highway Plan Freight Route
Designation
A. Implications
The 1999 OHP policies were also examined for implications if additional routes are included into the
existing system, especially if they are classified as Regional or District Highways. The following was
identified:
· The 1999 Highway Plan envisions freight routes as a subset of--having higher priority--than other
NHS Statewide Highways and is used to guide investment and management decisions.
· The roadway classification system is a hierarchy from Statewide to Regional to District. The
management objective of each is different and this is highlighted below. Additions of Regional and
District Highways to the State Highway Freight System could undermine the hierarchy of the
classification system which is also used to guide management and investment decisions.
o The management objective of State Highways is to provide safe and efficient, high-speed,
continuous-flow operation.
o The management objective of Regional Highways is to provide safe and efficient, high-speed,
continuous-flow operation in rural areas and moderate to high-speed operations in urban and
urbanizing areas. A secondary function is to serve land uses in the vicinity of these highways.
o The management objective of District Highways is to provide for safe and efficient, moderate to
high-speed continuous-flow operation in rural areas reflecting the surrounding environment and
moderate to low-speed operation in urban and urbanizing areas for traffic flow and for pedestrian
and bicycle movements.
· If Regional and District Highways are included in the State Highway Freight System, either the
highway mobility standards should be changed to reflect the additions or those routes will not enjoy
one of the benefits of being OHP freight routes. If the standards are changed, local plan amendments
and zone changes will be held to a higher standard of review for mobility standards.
· Any investment strategy for OHP freight routes could be diluted with too expansive a system that
does not clearly articulate a classification system that guides ODOT priorities for system investment
and management. Funding limitations, of necessity, require the department to prioritize investment
opportunities and needs.
DRAFT September 1, 2004 3
· A number of jurisdictions will need to prepare management plans for STAs and UBAs now on OHP
and Regional freight routes. Jurisdictions having STAs and UBAs already designated will have to go
back and do management plans. Funding for preparation of management plans will have to be
balanced with other planning needs that exist at the state and local level.
B. Significance of State Highway Freight Route Designation
The table below was developed to help clarify the significance of an OHP freight route designation. A
variety of issues ranging from planning to highway design were analyzed and the significance of the
designation ranges from little or no impact to significant impact. The judgment of significance relied on
practice, cost and changes in decision making.
The significance of the state highway freight route designation and the implications to other existing OHP
policies is essential information to incorporate into both in framing the discussion as to which freight
routes should be designated and the overall direction of the Oregon Highway Plan as it seeks to find that
balance between freight needs and the other users of system. The level of impact is shown in the table
utilizing the following symbols.
O - Little or No Impact ~ - Moderate Impact - Significant Impact
Significance of Oregon Highway Plan Freight Route Designation
significance Of
issue Impact comments
The freight routes are recognized as a system of state
1. Planning ~ highways that facilitate efficient and reliable interstate and
intrastate truck movements. These are primarily state
highways that carry a significant tonnage of freight by truck
and/or serve as the phmary interstate and intrastate highway
freight connections to ports, intermodal terminals, urban areas
and other states.
The Oregon Highway Plan (OHP) recognizes the importance
of maintaining efficient through movement on these major
truck freight routes but at the same time policies within the
OHP work to balance the need for movement of goods with
other uses of the highway system.
DRAFT September 1, 2004 4
The OHP states that in Special Transportation Areas (STA),
2. Highway ~ the highway's function as a freight route should be
Segment'~ balanced with local accessibility and circulation. STA
Designations management plans are required for STAs on the State
Highway Freight System and regional freight routes
designated by MPOs.
Urban Business Areas (UBA) management plans are
required for UBAs on the State Highway Freight System
and regional freight routes designated by MPOs. Mobility
and access interests need to be balanced through the
management plan.
See OHP Action lB.3 for the timing of management plans.
The potential exists that without timely completion of a
management plan, existing highway segment designations
could be revoked.
Being part of the State Highway Freight System is one of
3. Expressways the criterions used for highways proposed as Expressways.
~ The intent of an expressway is travel with minimal
interruptions, have controlled access, limited private
accesses and pedestrian facilities, and medians are
encouraged.
The OHP states that the State Highway Freight System
4. Funding ~ designation does not guarantee additional state investment
in these routes. The STIP Project Eligibility Criteria and
Prioritization Factors recommend that OHP Policies
including lC, State Highway Freight System, be considered
for D-STIP, Modernization and Preservation project
prioritization. Priority shall also be given to DSTIP,
Modernization, Preservation and Bridge projects that
leverage other funds and public benefits. An example of
leverage is direct benefit to multiple modes of travel. The
state bridge eligibility criteria focus on Interstate Highways
and OHP freight routes.
HB 2041 states in Section 37 that in developing the STIP
ODOT shall give priority to freight mobility projects that
are located on identified freight routes of statewide or
regional significance. The definition of freight mobility
projects in HB2041 is more encompassing than the OHP
freight routes definition, as evident in projects selected,
which include state and local roadways other than the OHP
freight routes.
DRAFT September 1, 2004 5
The OHP requires slightly higher mobility standards
5. Mobility ~ (maximum volume-to-capacity ratios) for freight routes
Standards'~' than other Statewide Highways. This means that slightly
less congestion is to be planned for the OHP freight routes.
For example, the maximum volume to capacity ratio for a
Statewide Highway inside an urban growth boundary on a
freight route is .75, while a Statewide Highway inside an
urban growth boundary not on a freight route is .80. This
will lead to a more rigorous standard for review of plan
amendments and zone changes. (This particular example is
based on Table 6, page 80 of the OHP (Non-MPO outside
of STAs where non-freeway speed limit < 45 mph).
The OHP states that ODOT will invest in thicker highway
6. Pavement ( ) pavements on designated freight routes. It also says that
Preservation"~ Statewide Highways should be maintained at a higher
condition than Regional and District Highways. However,
due to limited funding, being part of the State Highway
Freight System is not a major factor in pavement
management or maintenance. In practice, pavement
thickness is primarily based on field tests, condition of the
roadway, truck counts and truck configurations.
Being part of the State Highway Freight System is a factor
7. Highway ~ in roadway design and is addressed in the Highway Design
Design~ Manual. In designing a roadway, the Highway Design
Manual takes into consideration highway functional
classification, the State Highway Freight System, truck
volumes and configurations, mobility standards and other
factors. Highway design issues impacted by the State
Highway Freight System designation include typical
roadway section widths, median barrier, weigh stations and
intersection design and their attendant cost implications.
Depending on the circumstances, a design exception may
be needed to the Highway Design Manual standards.
HB2041 (ORS 366.215) states that the Oregon
Transportation Commission may not permanently reduce
the vehicle-carrying capacity of an identified freight route
when altering, relocating, changing or realigning a state
highway unless safety or access considerations require the
reduction. (An exemption can be granted if commission
finds it in the best interest of the state and freight movement
is not unreasonably impeded.)
DRAFT September 1, 2004 6
Permitting standards do not change just because a highway
8. Access section is designated part of the State Highway Freight
Management ~ System. Permitting standards are based on State Highway
Classifications, highway segment designations and whether
or not the segment is urban or rural or an expressway.
Higher mobility standards required by an OHP freight route
designation will impact design and spacing considerations
for access management approach permits.
IV. Criteria and Factors for Consideration
In the 1999 OHP, highways were included in the State Highway Freight System if annual truck tonnages
were moderate (4 to 9.99 million) to high (10 million and over), and/or if they provided connectivity with
significant freight generating areas in Oregon. While routes important to the movement of freight include
state, regional and local roads, the State Highway Freight System that is part of the Oregon Highway Plan
includes only state highways. One of the earliest recommendations of the committee members was an
identification of other factors that should be addressed when analyzing potential freight routes for this
work effort. The table below contains information on the 1999 criteria. Maps attached to this report
provide information about the state highway system with respect to the 1999 criteria and other factors of
consideration.
1999 OHP Freight Route Criteria
Criteria comments
Tonnage In the 1997 report, generally, highways or highway segments were included
where a majority of the mileage experienced 4 million tons or more annually.
See Map 1.
Connectivity In the 1997 report, several routes were added for their connectivity with freight
(within Oregon) generating areas, primarily major intermodal facilities. See Map 1.
In addition to these criteria, the committee identified additional factors that were used in the analysis of
the proposed freight routes. Below is a summary of other factors the committee requested be
incorporated in the review of potential freight route designations and how data was obtained and
considered in the evaluation of proposed routes.
consideration c~mments
NHS Highways See Map 1 which identifies the NHS designated highways. The National
Highway System (NHS) consists of interconnected urban and rural principal
arterials and highways which serve major population centers, international
border crossings, ports, airports, public transportation facilities and other major
transportation destinations; meet national defense requirements; and serve
interstate and interregional travel.
DRAFT September 1, 2004 7
Freight routes in See Map 2 which identifies designated freight routes in adjacent states.
adjacent states Connectivity of Oregon's freight routes with freight routes in adjacent states is
important for interstate freight movements.
Percent trucks See Map 3 which illustrates the percentage of trucks utilizing a given state route
compared to the overall traffic composition. Many rural routes do not carry the
higher tonnage of freight seen in urban areas but do experience a high percent of
trucks. The significance of truck movements on these highways may not be
fully represented on the tonnage map (Map 1).
Truck volumes See Map 4 which illustrates the average truck volumes on state highways. Many
trucks like those serving high-tech industries carry high value/low weight
freight. The truck movements on these highways may not be adequately
represented on the tonnage map (Map 1). A statewide map was developed
showing 2002 truck volumes which was used to help equalize disparities
between trucks of different weights by taking the weight of the trucks out of the
picture.
Regional freight See Map 5 which depicts the State Highway Freight System along with state
systems highways that are part of regional freight systems. These regional freight
systems currently exist in the Metro, SKATS, Central Lane and Rogue Valley
MPOs.
Truck length See Map 6 which identifies state routes with truck length restrictions. Due to
restrictions road curvature, lane width and other factors, ODOT's Motor Carrier
Transportation Division restricts truck configurations and lengths on some
highways.
STAs, UBAs and See Map 7 which identifies communities with either existing or potential
main streets highway segment designations. The freight route designation may impact
highway segments that are or have the potential to be STAs and UBAs and
create conflicts with respect to downtown community development objectives.
It may also impact highway sections that function as main streets to cities and
towns.
Freight generating The truck tonnage, truck volumes and percent trucks maps (Maps 1, 3 and 4)
sites were reviewed to identify highways impacted by freight generating sites. Truck
traffic generated by major industrial and commercial developments impacts
state highways.
NHS intermodal See Map 8 which identifies the freight intermodal connectors in Oregon. NHS
connectors Intermodal connectors are not part of the State Highway Freight System. A
proposed Action in the OHP (Action 4A.4) recognizes the importance of these
roadways and the revised State Highway Freight System will incorporate
information recognizing a complete freight system that takes into account these
local intermodal connectors that are primarily local facilities. Map 9 includes
information on where to view large-scale maps on ODOT's website.
DRAFT September 1, 2004 8
C~id~tiO~ C~~
Major freight Routes important to the movement of freight include state, regional and local
routes on local roads. There may be some local facilities that carry significant truck tonnage
facilities and function as major freight routes in the region. The State Highway Freight
System that is part of the OHP contains policies and actions that direct ODOT in
the management of its highways that are important to freight. The importance of
local facilities that carry significant truck tonnage or allow for truck movements
that can not take place on the State Highway Freight System (like over-
dimensional loads) will be acknowledged in proposed Action 4A.8. Such roads
should be included as part of a regional freight system (if in an MPO).
Urban/rural See Map 3 which depicts the average percentage of trucks traveling on a state
differences route compared to the overall traffic composition. Rural areas may not have the
tonnage or volumes seen in the urban areas, but the truck traffic they do have is
very important to the economy in the area. One way to address these
differences is to look at the percent of trucks on highways. Those highways
with a relatively high percent of trucks (over 25% trucks) help identify rural
highways important to the economy in the area.
Seasonality See Map 4 which illustrates the average truck volumes on state highways. On
some highways, truck traffic is greater during certain months of the year.
Vehicle counts (including trucks) are collected during April or September.
These months are used because the average daily traffic during these months
approximates the average annual daily traffic at that site. Traffic counts are
completed every three years and ODOT will monitor the truck traffic counts on
all highways to determine if any warrant inclusion to the State Highway Freight
System.
Utilizing these additional factors for consideration (in addition to the 1999 criteria) to help identify
candidate highways or highway segments for inclusion to the State Highway Freight System is not solely
an objective process. However, the application of the factors for consideration was as thorough as
possible in development of the recommended additions to the OHP freight routes to facilitate truck
movements in and through Oregon. Every route was reviewed with respect to these factors, OHP freight
system policy, and implications and significance of adding more routes to the State Highway Freight
System. In the evaluation process, not all of the factors were applicable to every request. Even within
the applicable considerations, it was important to be mindful of identifying a network grid of state
highways for the major truck movements in the state. The State Highway Freight System, along with the
freight systems established at the regional, county and city levels, link together.
For some factors that the committee requested be considered in evaluating potential freight routes, the
data does not exist to accurately address the issue. In these situations, staff has relied upon other relevant
available data to help evaluate the route with respect to that area of consideration. Three of the 15 factors
of consideration suggested by committee members were addressed differently in evaluating potential
freight routes.
The recommendations for state highway freight designations recognize that factors of considerations will
be weighed differently in different parts of the state. For example, a truck volume that is quite important
in a rural part of the state may be less significant in an urban part of the state. Therefore these criteria and
DRAFT September 1, 2004 9
factors of considerations must be applied with an understanding of how the context fits to the system
across the state and is not dependent on an absolute evenness of determination in each case.
One suggested consideration was to include a highway if it is located near an "Opportunity Site". This
consideration was addressed to some degree during the selection of the Opportunity Sites earlier this year.
HB 2011, which will provide assistance to communities for local economic development efforts,
identified approximately 25 Opportunity Sites for industrial or traded sector uses. The importance of
having the State Highway Freight System, or highways or local roads designated as NHS intermodal
connectors, or other highways and roadways with a high volume or percentage of trucks near the
Opportunity Site was considered as part of the project selection for funding consideration.
Another suggested consideration was to project truck tonnage out 20 years. It would be very difficult to
accomplish this because of several uncertainties including obtaining data on future route selection by
freight carriers. Other states, including California and Washington, have realized the difficulties in
projecting statewide truck tonnage estimates and have decided to base management of their freight
systems on current tonnage data. To address this issue, ODOT will monitor truck tonnage data when
truck count information is completed (every three years). The OHP is amended on a regular basis and a
review of tonnage information on a routine basis could lead to additional freight route designations in the
future. Proposed Action 4A.9 recognizes the need to establish an OHP amendment process for State
Highway Freight System designations.
Another suggested consideration was to compensate for variability in the number of trucks (and tonnage)
on certain highways. This variability is difficult to pinpoint. As stated above, updates of the plan will
occur at appropriate intervals and the tonnage data for a particular route could be used in assessing its
potential as a future freight route.
The table below identifies the segments considered for inclusion and the key considerations for their
inclusion. Inclusion in the State Highway Freight System was limited to state highways because the OHP
policies and actions are focused on the state's management of its highways. Other segments were
analyzed but not recommended for inclusion and that information is provided at the end of the table. In
applying the factors for considerations to a particular route to determine whether or not it should be
recommended, it was recognized that some factors under consideration weigh more heavily than others,
depending upon which part of the state the highway lies in.
Applied Criteria & Factors of Consideration Table
Recommended Additions to the 1999 Adopted OHP Freight Routes
HighWay S!at~ High~ay
Name Classification Limits Key considerations
1 OR 126 Statewide US 101 to Eugene * NHS
(Florence to * No potential, recommended or adopted
Eugene) STAs or UBAs
· Connectivity between two major freight
routes (US 101 and 1-5)
DRAFT September 1, 2004 10
Name Classification Limits Key considerations
2 OR 126 Statewide 1-5 to OR 126/US · NHS
20 · No potential, recommended or adopted
(Springfield to just STAs or UBAs
south of Santiam · Connectivity between 2 major freight
Pass) routes (1-5 & OR 22/US 20)
3 US 20 Statewide OR 126/US 20 · This 4 mile section of US 20 near
Junction to Junction Santiam Pass is needed to connect the
of US 20/OR 22 proposed freight route above (OR 126)
(Santiam Pass) with US 20/OR 22, an existing freight
route
· NHS
4 OR 62 Statewide 1-5 to OR 140 · NHS
· High truck tonnage (4 to 9.99) and
volumes (1,500 to 2,999)
· On MPO freight system
5 OR 140 Statewide OR 62 to Klamath · NHS
Falls (White City to · No potential, recommended or adopted
Klamath Falls) STAs or UBAs
· Connectivity to Central Oregon and US
97
6 OR 140 Statewide US 97 to US 395 · NHS
(Klamath Falls to · No potential, recommended or adopted
Lakeview) STAs or UBAs
· Connectivity to Central OR (US 97 &
US 395)
7 US 26 Regional US 97 to Prineville · Medium truck tonnage (1 to 3.99)
(Madras to · No potential, recommended or adopted
Prineville) STAs or UBAs
· Connectivity to (US 26 to Portland and
US 97 north)
8 US 395 Statewide CA border to WA · NHS
border · Connectivity within eastern Oregon &
to adjacent states
· Designated as a High Priority NHS
Corridor by FHWA
DRAFT September 1, 2004 11
Name Classification Limits Key considerations
9 OR 78 Regional US 20 to US 95 · Connectivity within southeastern
(Bums to Bums Oregon and to adjacent states (
Junction) connects with US 95 which is a
recommended route and is designated
as an Interstate Priority Corridor in
Idaho)
· Medium to high percent tracks (10 to
39.9)
10 OR 22 Statewide 1-5 to OR 18 · NHS
(Salem to Valley · Designated as an MPO freight route
Junction) · Medium to very high track tonnage (1.0
to over 10) and track volumes (500 to
over 3,000)
11 Salem Regional 1-5 to OR 22 · Designated as an MPO freight route
Parkway/ · Medium to very high track tonnage (1.0
OR 99E to over 10) and track volumes (500 to
over 3,000)
12 Beltline Statewide 1-5 to OR 126 · NHS
Hwy · Designated as an MPO freight route
· High to very high track tonnage (4.0 to
over 10) and track volumes (500 to
over 3,000)
13 OR 34 Regional 1-5 to US 20 · Medium to high track tonnage (1.0 to
(1-5 through 9.99) and track volumes (500 to 2,999)
Lebanon)
14 US 20 Regional OR 34 to Sweet · Medium track tonnage (1.0 to 3.99) and
Home track volumes (500 to 1,499)
(Lebanon to Sweet
Home)
15 OR 35 Statewide US 26 to 1-84 · NHS
(US 26 to Hood · No potential, recommended or adopted
River) STAs or UBAs
· Alternate route during fire/ice
conditions on 1-84
DRAFT September 1, 2004 12
Name Classification Limits Key considerations
16 OR 126 Statewide US 20 to US 97 · NHS
(Sisters to · Connectivity in Central Oregon
Redmond) · No potential, recommended or adopted
STAs or UBAs
17 US 95 Statewide California to Idaho · NHS
· Connectivity to a designated freight
route in Idaho
· High to very high percent trucks (25 to
50%)
18 US 97/ Statewide US 20 to US 97 Bus · Parkway was built after the State
Bend Highway Freight System was
Parkway established and the old alignment (US
97) was an OHP freight route
19 OR 126 Statewide US 97 to Prineville · NHS
(Redmond to · Medium to high truck tonnage (1.0 to
Prineville) 9.99)
· No potential, recommended or adopted
STAs or UBAs
20 OR 99W Regional OR 18 to OR 99E · Medium to high truck tonnage (1.0 to
(McMinnville to 9.9)
Junction City)
21 OR 99 Regional OR 99W to Belt · High truck tonnage (4.0 to 9.9)
Line Hwy (Junction · No potential, recommended or adopted
City to Belt Line STAs or UBAs
Hwy)
22 Hwy 331 District OR 11 to 1-84 · This short highway (4 miles) connects
OR 31 with 1-84.
· It is currently signed and used by trucks
because the OR 11/1-84 connection is
not conducive for trucks
23 US 730 Regional 1-82 to WA border · Connectivity to a designated freight
(Umatilla to WA route in WA
border) · High to very high truck tonnage (4.0 to
over 10.0)
· High truck percents (25 to 39.9%)
DRAFT September 1, 2004 13
Name Classification Limits Key considerations
24 US 199 Regional 1-5 to CA border · Low to medium percent trucks (under
(Grants Pass to CA 25%)
border) · Low to medium truck volumes (under
1,499)
· NHS
· Not a designated freight route in
California
25 OR 11 Statewide WA border to Hwy · Connectivity to a designated freight
331 route in WA
· Medium truck tonnage (1 to 3.99)
26 OR 34 Regional 4th St. in Corvallis · High truck tonnage (4 to 9.99) and
to Corvallis Bypass volumes (1,500 to 2,999)
· This short highway (4 miles) connects
OR 99W with OR 34.
Freight Route Requests Not Being Recommended
Highwa~ S~at~ High~ay
~a~ ~l~i~ifi~ti~~ ~i~iii Ke~ considerations
27 US 101 Statewide US 30 to OR 6 · Segment contains several adopted
(Astoria to STAs and UBAs and potential or Retail
Tillamook) Task Force recommended segments
· Mostly low (under 10%) percent trucks
28 US 101 Statewide OR 22 through · Segment contains adopted STAs and a
Lincoln City potential STA
· Low (under 10%) percent trucks
29 US 101 Statewide OR 126 to OR 38 · Segment contains several adopted
(Florence to STAs and UBAs and potential or Retail
Reedsport) Task Force recommended segments
· Low (under 10%) percent trucks
30 US 101 Statewide OR 42 to CA · Segment contains several adopted
border STAs and UBAs and potential or Retail
Task Force recommended segments
· Several overlength truck restrictions
· Low to medium truck volumes (0 to
1,499)
DRAFT September 1, 2004 14
Name Oassmcatlon Limits Key Considerations
31 US 101 Statewide US 30 to OR 6 · Segment contains several: potential,
(Astoria to Retail Task Force recommended and
Tillamook) adopted STAs and UBAs
· Mostly low (under 10%) percent trucks
32 OR 62 Regional OR 140 to US 97 · Mostly low truck tonnage (under 0.99)
and truck volumes (under 499)
· Traverses Crater Lake National Park
33 Millican None OR 126 to US 20 · Not a state highway
Road (Prineville to
Millican)
34 OR 31 Regional US 97 to US 395 · Low truck tonnage (under 0.99) and
(La Pine to Valley truck volumes (under 499)
Falls) · The addition of OR 140 as an OHP
freight route will provide increased
connectivity in the region
¥. Highway Segment Designations and Management Plans
One of the key reasons for the evaluation of additional freight routes is to assess the objective of
maintaining a safe and efficient system and the recognition that many communities have grown up along
these statewide travel routes. Policy lB of the 1999 Oregon Highway Plan recognizes that state
highways serve as the main street of many communities and it strives to maintain a balance between
serving these main streets and the through traveler. Policy lB applies to all state highways and provides
guidance to ODOT regarding system management planning and implementation activities. It is designed
to clarify how ODOT will work with local governments and others to link land use and transportation in
transportation plans, facility and corridor plans, plan amendments, access permitting and project
development. The role of ODOT and local governments in designating highway segments is to work
together so that planned community development patterns are individually tailored yet also meet
statewide highway needs for safety and mobility.
Highway Segment Designations include Special Transportation Areas (STA), Urban Business Areas
(UBA), and Commercial Centers (CC). The process for designating highway segments begins with the
identification of an area in a local transportation system plan, facility plan, downtown plan or other
adopted plan. Through communication and cooperation, the local jurisdiction and ODOT reach agreement
on the specifics of the designation. ODOT will not proceed without written support by the local
government for the designation. Once the parties have reached agreement, the OTC formally designates
the segment. For segments not on OHP freight routes or MPO/Metro RTP freight systems, the process
ends with the Commission's action.
In January the OTC adopted 133 segment designations around the state, most of them in downtown areas
of small and medium sized cities. Most of them are not located on currently designated freight routes,
DRAFT September 1, 2004 15
however several would be affected by some of the proposed additions to the state freight system. The
development of management plans would become a requirement in those communities as part of their
next planning update.
When a highway segment is designated on an OHP freight route or a freight system designated in a
Regional Transportation Plan (RTP), in addition to the general process, a management plan is required.
ODOT staff is working on developing further guidance on the development of Highway Segment
Designation Management Plans. The OHP identifies the elements of a Highway Segment Designation
Management Plan which are outlined in the following table:
Elements of a Highway Segment Designation Management Plan
The column on the left reflects the required, as applicable, elements of a management plan as specified in
the Oregon Highway Plan. The list on the right includes examples of how the issues might be considered.
How the issues are addressed may vary depending on the unique circumstances of the designation and
whether it is an STA or UBA. Factors such as existing plans and Highway Design Manual specifications
could moderate the content needed to meet the obligations.
Goals and [] Pertaining primarily to the function of the roadway.
Objectives [] Setting out local priorities for the segment area.
[] A commitment that through traffic will be served:
[] By operational priorities within the designated segment area.
[] By operational priorities outside of the designated segment area.
Transition [] Consider how to slow traffic entering the segment area adequately for a safe
Areas transition:
[] Physical improvements in the transition area;
[] Signage;
[] "Gateway" treatments, etc.
Design [] Accommodation of pedestrians, bikes and transit consistent with the lB
Standards to characteristics for the applicable designation.
Support Both [] Consideration whether those standards adequately address the needs of through
Mobility and traffic, particularly large trucks.
Local Access
Strategies for [] Signal spacing and timing to serve through traffic.
Freight and [] Access management measures.
Through
Traffic
DRAFT September 1, 2004 16
Parking The approach to parking will be different for each of the three segment types:
Strategies [] In an STA, a parking plan will probably include counting on-street spaces to
help meet minimum parking requirements, and adopting maximum parking
standards.
[] In a UBA, strategies should include, at a minimum, cross-connections between
lots and safe passage through parking areas for pedestrians.
[] For a Commercial Center, the impacts on the function of the roadway will
typically be concentrated on one intersection, with parking located within the
Commercial Center.
Local Street [] Identify the relationship between the local street system and the function of the
Network state highway.
[] Provide for connectivity on local streets to support better mobility on the state
highway by keeping some local trips off of the highway.
Traffic and This section will typically be new planning work, specifically related to the decision
Safety Impacts to designate the segment.
of Segment [] Identify existing or new safety issues related to the segment designation.
Designation [] Identify appropriate mitigation measure to address safety concerns.
Maintenance [] Identify the party or parties responsible for ongoing maintenance and operations
and tasks.
Operational [] Identify maintenance and operational strategies, to be developed in coordination
Strategies with ODOT.
Map 7 identifies the general locations of the segments designated in January 2004. The map also depicts
other locations under review for highway segment designations. Any additional designations beyond that
list will not be considered until completion of this effort. These future designations would require a
management plan prior to designation if located on a freight route.
VI. Oregon Highway Plan Policy Changes
Due to the revisions proposed to the criteria and the OHP freight routes, modifications to the Oregon
Highway Plan are anticipated and revised text of the OHP language change is outlined below. See
Attachment A for amendments showing track changes.
· Page 41 of the OHP:
Regional Highways typically provide connections and links to regional centers, Statewide or
Interstate Highways, or economic or activity centers of regional significance. The management
objective is to provide safe and efficient, high-speed, continuous-flow operation in rural areas and
moderate to high-speed operations in urban and urbanizing areas. A secondary function is to serve
DRAFT September 1, 2004 17
land uses in the vicinity of these highways. If not on a designated OHP freight route, local access is a
priority inside STAs. Inside Urban Business Areas, mobility is balanced with local access.~
District Highways are facilities of county-wide significance and function largely as county and city
arterials or collectors. They provide connections and links between small urbanized areas, rural
centers and urban hubs, and also serve local access and traffic. The management objective is to
provide for safe and efficient, moderate to high-speed continuous-flow operation in rural areas
reflecting the surrounding environment and moderate to low-speed operation in urban and urbanizing
areas for traffic flow and for pedestrian and bicycle movements. If not on a designated OHP freight
route, local access is a priority inside STAs. Inside Urban Business Areas, mobility is balanced with
local access.
· Page 63 of the OHP:
Background
According to the 2002 Federal Highway Administration;s Analysis Framework trucks carried nearly
76 percent of the total freight tonnage and 82 percent of the total freight value for the year. To ensure
that freight is able to move efficiently on the state's major trucking routes, this plan designates a state
highway freight system (Table 5, page 56). There are other routes at the regional and local level that are
linked to the state highways and form a network important to the movement of freight. The OHP
designated routes, policies and actions direct ODOT in the management of state highways that are
important to the movement of freight. The importance of the regional and local freight routes and the
connections to the state system is illustrated, in part, by the map showing NHS intermodal connectors
that are part of the regional or local system. The key criteria of freight volume, tonnage, connectivity
and linkages to the National Highway System intermodal facilities were augmented in the 2004 Freight
Route designation update. Other factors that were considered included connectivity to regional freight
routes and freight routes in other states, percent of trucks on state highways to reflect urban/rural
characteristics, freight generating sites and implications to highway segment designations.
The primary purpose of the State Highway Freight System is intended to facilitate efficient and reliable
interstate, intrastate, and regional truck movement through a designated freight system.. This freight
system, made up of the Interstate Highways and certain Statewide, Regional and District Highways on the
National Highway System, includes routes that carry significant tonnage of freight by truck and serve as
the primary interstate and intrastate highway freight connection to ports, intermodal terminals, and urban
areas. It supersedes and replaces the designation of primary freight COlTidors in the Oregon Transportation
Plan. However, freight routes designated on Regional or District Highways will be managed
according to their highway classification.
Freight depends upon timely and dependable movement of goods over the system; some industries
structure their facilities and processes on just-in-time deliveries. Highway efficiency for goods movement
in an expanding economy will require public and private investments in infrastructure as well as changes
in road operations to reduce congestion on freight routes. Designating a network of freight routes of
primary importance to the state will help ensure that these investments are coordinated in a way that
reinforces the unique needs of the freight system.
Improving and maintaining the efficiency of highway operations requires balancing the needs of freight
movement with the needs of other users of the highway system. Some state highways that are important
goods movement COlTidors also serve as communities' main streets and may be designated as Special
Transportation Areas. It may be the objective of local officials to reduce or slow traffic passing through the
town, with potentially adverse impacts on long distance freight transportation. Therefore, a management
~ See Oregon Highway Plan Action lB.3 regarding the requirement for management plans.
DRAFT September 1, 2004 18
plan will be developed that combines local land use planning needs while recognizing the special
significance of the designed State Highway freight system. See Policy lB which requires a highway
segment designation on a designated OHP Freight Route or Region Freight System include the
development of a management plan approved by both ODOT and the local government. The design
of designated freight routes will impact highway designs involving roadway section widths, median
barriers, intersection designation and will require higher mobility standards for Statewide Highways.
Regional and local jurisdictions may designate their own freight route systems, but these designations
should be compatible with or complementary to the designation of routes in the State Highway Freight
System.
The State Highway Freight System designation does not guarantee additional state investment in these
routes. However, three special management strategies are available:
- Highways included in this designation have higher highway mobility standards than other Statewide
Highways (see Policy 1F).
- The highway's function as a freight route should be balanced with local accessibility in Special
Transportation Areas and Urban Business Areas. This balance is defined through a management plan
developed jointly by the local government and ODOT.
- Freight system routes may be treated as Expressways outside of urban growth boundaries and
unincorporated communities. (See Action 1C.3 and the definition of Expressways in Action lA.2.)
Editors Note: The following additional changes will be made to conform these amendments to the
Oregon Highway Plan.
· Page 65 of the OHP:
Update the map that depicts the State Highway Freight System.
· Page 66 of the OHP:
Delete Table 5. (A more accurate listing of the highway segments associated with the OHP freight
routes can be found in Appendix D of the OHP.)
· Page 121 of the OHP:
Revise Action 4A.4 Efficiency of Freight Movement
Action 4A.4
Maintain and improve roadway facilities serving intermodal freight facilities that are part of
Oregon's Intermodal Management System, and support development of new intermodal roadway
facilities where they are part of a local or regional transportation system plan. Recognize National
Highway System intermodal connectors as part of the freight network in transportation planning and
funding considerations. Manage state-owned intermodal connectors according to their state highway
classification as Regional or District Highways.
Add new Action: Action 4A.8
Recognize that local truck routes are important linkages in the movement of freight throughout the
state. ODOT will develop a process to consider requests to establish local government designated
truck routes which will serve to detour trucks off the state highway system. ODOT will coordinate
with local jurisdictions when designating, managing and constructing a project on a local freight
route.
DRAFT September 1, 2004 19
Add new Action: Action 4A.9
Develop an amendment process for the identification of additional routes to the State Highway
Freight System.
· Page 204 of the OHP:
Update Appendix D Highway Classification by Milepoint.
VII. Recommended Revisions to the State Highway Freight System
Recommended revisions to the State Highway Freight System have been developed based on the
application of the criteria and other factors of consideration. Map 9 depicts the draft recommended
revisions to the State Highway Freight System. Provided below is a summary of the mileage associated
with the recommended revisions to the State Highway Freight System.
Summary Table
EXiSting system Additions
Total Oregon Highway 7,448 Miles NA NA
Mileage
Total Oregon NHS 3,654 Miles NA NA
Mileage*
State Highway Freight 2,092 Miles Approximately 919 Miles
System
New Total: 3,011 Miles 43%
NHS Mileage that is part 2,091 Miles Approximately 642 Miles
of State Highway Freight
System* New Total: 2,734 Miles 32%
Freight System includes Freight System would
57% of the NHS in include 76% of the NHS in
Oregon Oregon
Non -NHS Mileage that is 1 Mile Approximately 233 Miles
part of State Highway
Freight System New Total: 234 Miles 234%
*Does not include NHS Intermodal Connectors that are local facilities.
DRAFT September 1, 2004 20
VIII. Next Steps
The next steps will include informing interested stakeholders, including affected jurisdictions of proposed
freight routes. The following is a list of local governments that would potentially be impacted by the
proposed freight route designations.
Jurisdictions Located on Proposed Freight Routes
High~a~ Li~it~ AffeCted ~d~dicti0~
OR 99W McMinnville to Junction McMinnville, Amity, Monmouth, Adair Village,
City Corvallis, Monroe. Yamhill, Polk and Benton
Counties
OR 99 Junction City to Belt Line Junction City, Eugene. Lane County
Hwy
OR 126 US 101 to Belt Line Hwy Florence, Veneta, Eugene. Lane County
1-5 to OR 126 Bus Springfield. Lane County
OR 126 to US 20 Lane and Linn Counties
Sisters to Redmond Sisters, Redmond. Deschutes County
Redmond to Prineville Redmond, Prineville. Deschutes and Crook
Counties
US 199 1-5 to CA border Cave Junction. Josephine County
OR 22 1-5 to OR 18 Salem. Marion and Polk Counties
OR 99E Bus 1-5 to OR 22 Salem. Marion County
(Salem Parkway)
Beltline Hwy 1-5 to OR 126 Eugene. Lane County
OR 35 US 26 to 1-84 Hood River. Hood River County
OR 34 1-5 through Lebanon Lebanon. Linn County
US 20 Lebanon to Sweet Home Sweet Home. Linn County
OR 126 to OR 22 Lane and Linn Counties
OR 62 1-5 to Hwy 140 Medford. Jackson County
US 97/ US 20 to US 97 Bus Bend. Deschutes County
Bend Parkway
DRAFT September 1, 2004 21
OR 140 OR 62 to Lakeview Eagle Point, Klamath Falls, Lakeview. Jackson,
Klamath and Lake Counties
US 26 Madras to Prineville Prineville, Madras. Jefferson and Crook Counties
US 730 Umatilla to WA border Umatilla County
US 395 WA border to 1-84 Hermiston, Stanfield. Umatilla County
1-84 to US 26 Pilot Rock, Long Creek, Mt. Vernon. Umatilla and
Grant Counties
US 26 to US 20 John Day, Canyon City, Seneca, Bums. Grant and
Hamey Counties
US 20 to CA border Lakeview. Hamey and Lake Counties
OR 11 OR 331 to WA border Milton-Freewater, Umatilla County
Hwy 331 1-84 to Hwy 11 Umatilla County, Confederated Tribes of the
Umatilla Indian Reservation
US 95 CA border to ID border Jordon Valley. Malheur County
OR 78 US 20 to US 95 Bums. Hamey and Malheur Counties
The input from the cities and the input from affected counties, Area Commissions on Transportation,
MPOs, and other stakeholders will be solicited during the month of September. The comments will be
compiled and incorporated into a set of recommendations to be considered by the Freight Route Advisory
Committee at the end of October/early November. As this is an amendment to the OHP, a public hearing
before the Oregon Transportation Commission will need to be held. It is hoped that the Commission
could take action before the end of the year to finalize this work effort.
List of Attachments
Attachment A - OHP Policy Amendments Showing Track Changes
Map 1 -Tonnage
Map 2 - Connectivity to other States
Map 3 - Percent Trucks
Map 4 - Truck Volumes
Map 5 - OHP & MPO Freight Routes
Map 6 - Truck Length Restrictions
Map 7 - Highway Segment Designations
Map 8 -NHS Intermodal Connectors
Map 9 - Recommended Routes
DRAFT September 1, 2004 22
ATTACHMENT B