Technical Memorandum #6

DATE: December 29, 2017

TO: Creswell TSP Project Management Team and Stakeholders

FROM: Mat Dolata, PE, PTP, DKS Associates Kamilah Buker, EIT, DKS Associates

SUBJECT: Creswell Transportation System Plan Update Task 4.2 Evaluate Existing Conditions

This memorandum provides a summary of the existing transportation conditions for the City of Creswell, providing documentation in the following areas:

 Unique Aspects of Creswell  Available Transportation Options

 Key Destinations  How the Transportation System is Managed  How People Travel  Conditions of the Existing  Factors that Affect How People Transportation System Travel Unique Aspects of Creswell

The City of Creswell, incorporated in 1909, is located in the Willamette Valley in central western Oregon. Creswell began as a farming community and has grown into a charming small town that is home to approximately 5,360 people.1 The City is located along Interstate 5 (I‐5) conveniently located approximately 10 miles from the Eugene‐Springfield Metropolitan Area.

Creswell is located in close proximity to Oregon Wine Country and a two‐hour drive from the Oregon Coast, making it a serene getaway for tourists. Creswell offers diverse attractions and convenient access to recreation opportunities including hiking, alpaca farms, covered bridges, farmer’s markets in the summer, ranches, or wine tasting. Creswell also plays host to the notable Emerald Valley Golf Club where the University of Oregon Ducks play. The City recently celebrated been honored as a “Tree‐City USA” for the past seven years (since 2011).

1 Creswell was reported as having a population of 5,473 in 2015 according to the Population Research Center College of Urban and Public Affairs at Portland State University. The population estimate was updated to 5,360 in 2016.

Page 1 of 52 Creswell TSP Update Technical Memorandum #6: Evaluate Existing Conditions

Historically, Creswell’s economy was centered around a wood veneer mill. Today, employment industries in and around Creswell are more varied, including education, manufacturing, retail trade, health services, agriculture, and timber processing. Creswell provides services and amenities to surrounding rural and agricultural lands, aided by proximity to I‐5, OR 99 and the rail line. These transportation facilities, along with proximity to Eugene‐Springfield, make Creswell attractive to residents and businesses that want small‐town character while having convenient access to urban employment, amenities, and services. Key Destinations

One of first steps in planning for an effective transportation system is gaining an understanding of the key destinations that people currently travel to throughout the city. These destinations, referred to as “activity generators,” are commonly categorized as employment, shopping, school, civic buildings, recreation, and entertainment locations. Key activity generators are mapped in Figure 1 along with the city limits and urban growth boundary (UGB).

Shopping and entertainment opportunities are generally found in the central area of the city, in the downtown commercial area and along the Oregon Avenue/Cloverdale Road/OR 222 corridor. Most civic buildings are located downtown along West Oregon Avenue including the Lane County Sheriff’s Substation and City Hall located on the corner of South 1st Street. The Creswell Community Center is located on the adjacent corner of the block at the South 1st Street/C Street intersection. The Creswell City Library is located on the corner of West Oregon Avenue and North 1st Street. The largest industrial area is the former mill site, located near the central south part of the city just west of I‐5.

Creswell Municipal Airport ‐ Hobby Field, located east of I‐5 on 102 acres northeast of downtown within city limits, is a public, General Aviation, non‐towered airport, owned and operated by the City of Creswell. Hobby Field serves many private planes, experimental aircraft activities, a sky diving company, and a flight school.

The largest concentrations of homes in Creswell are located on the west side of the City (west of I‐5 and the railroad tracks). Other residential areas are located with a small portion located to the east at the edge of the City, north of Cloverdale Road. The public elementary, middle, and high schools are all located near each other in the western part of the city. The city owns and maintains two parks, Holt Park and Garden Lake Park. Holt Park is located in the city center while Garden Lake Park is located just east of I‐5.

December 29, 2017 Page 2 of 52 Figure 1 - Study Area (Activity Generators & Study Intersections)

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Public City Limit Facility/Government Creswell TSP Update Technical Memorandum #6: Evaluate Existing Conditions

Commuting Patterns Much of the traffic in Creswell during the more congested weekday p.m. peak periods is related to employment travel. According to data from the U.S. Census Bureau2, approximately 2,000 Creswell residents travel to jobs in other cities on a typical day, while approximately 250 residents stay in Creswell for work. At the same time, approximately 1,000 employees from other cities and surrounding rural areas travel to Creswell for work.

Table 1 shows where Creswell residents and employees work and live. As shown, only about eleven percent of Creswell residents work in Creswell, while more than half work in Eugene or Springfield. A significant number of residents travel to employment locations that are at least 10 miles outside of the city. Considering the most common locations associated with Creswell employment, the majority of commuting residents travel northbound in the morning and southbound in the afternoon. The opposite would be true for the majority of the employees coming to Creswell.

Table 1: Creswell Employment Patterns (2015) City of Origin/ Where Creswell Where Creswell Workers Approximate Distance Destination Residents are Employed Live from Creswell Eugene 36% 17% 10 ‐ 25 miles Springfield 16% 9% 10 ‐ 25 miles Creswell 11% 20% ‐ Cottage Grove 3% 5% 10 miles Portland 2% <1% > 50 miles Salem 2% <1% > 50 miles All Other Locations 30% 48% ‐ Source: US Census Bureau, OnTheMap Application and LEHD Origin‐Destination Employment Statistics, 2015 Primary Jobs. Accessed September 2017.

2 United States Census Bureau. OnTheMap Application and LEHD Origin‐Destination Employment Statistics, 2015 All Jobs. Accessed October 2017.

December 29, 2017 Page 4 of 52 Creswell TSP Update Technical Memorandum #6: Evaluate Existing Conditions

How People Travel

People traveling in Creswell have several choices when deciding how to make their trip. This section describes how people in Creswell have decided to travel in the past. As part of our public outreach process, we will solicit input to discover how people would like to travel and what improvements might be needed to encourage change.

Mode Choices for Commuters Table 2 compares the commute travel modes choices of Creswell residents to other nearby cities. With many commuters travelling between Creswell and Eugene/Springfield and relatively few residents staying in the City to work, the single occupant vehicle share is higher than in comparison communities. On average, almost 80 percent of Creswell residents commuted to work using single occupant motor vehicles between the years of 2011 and 2015.3

Table 2: Commuter Mode Share in Creswell and Nearby Cities Percent of Commuters Transportation Mode Creswell Eugene Springfield Cottage Grove Walked 2% 8% 3% 9% Biked / Other <1% 9% 3% 2% Public Transportation 6% 4% 5% 2% Motor Vehicle – 80% 65% 73% 68% Single Occupant Motor Vehicle – 9% 9% 14% 14% Carpool Worked at Home 3% 6% 3% 6% Note: Data for workers over 16 years of age Source: Table DP03, American Community Survey 5‐Year Estimates, 2011‐2015

Approximately 11 percent of Creswell residents walked, biked, rode public transportation, or worked from home. Although a relatively high percentage of employees rode transit, the mode share for walking or biking is low in comparison to other communities.

Although the U.S. Census Bureau is a valuable source of information for work‐related commute patterns in Creswell, it is important to note that the data do not fully represent the transportation modes used for other activities. These other trip types include travel for school trips, recreation, and shopping.

3 United States Census Bureau. 2011‐2015 American Community Survey 5‐Year Estimates. Accessed June 2017.

December 29, 2017 Page 5 of 52 Creswell TSP Update Technical Memorandum #6: Evaluate Existing Conditions

Transportation Modes in the City Traffic counts at study intersections (shown in Figure 2) throughout Creswell were collected on Wednesday June 7, 2017. These counts captured volumes of motor vehicles (automobile and freight), pedestrians, and bicyclists. A review of the traffic counts and other related data indicate some general trends for each mode of travel, which are described below.

Motor vehicle volumes on the roadways in Creswell most commonly peak during weekdays between 4:45 p.m. and 5:45 p.m. This reflects a typical evening peak hour demand pattern that is consistent with commuting characteristics.

Traffic volumes generally vary depending on the time of year. Activity levels generally increase during summer months as pleasant weather and longer days entice residents and visitors to get out and travel to various activity generators throughout the city. For this reason, the traffic count data collected in June was adjusted to represent the 30th highest annual hour volumes (30 HV). These peak demand volumes are commonly used for transportation facility design and planning purposes. For this analysis, the volumes reflect a relatively small adjustment (less than five percent), similar to the data that was collected in June.

The weekday p.m. peak hour traffic volumes for this design period that were developed for the study intersections are displayed in Figure 2. Traffic counts, 30 HV seasonal adjustments, and peak seasonal traffic volumes developed for each study intersections are detailed in the Technical Appendix.

Freight volumes in Creswell are highest along I‐5, as this is the primary freight route designated for freight vehicles traveling through Creswell. Within the City, freight vehicles commonly use state highways (OR 222 and OR 99). Heavy vehicle volumes in Creswell are based on available count data and represent approximately two to six percent of the total volume on the Oregon Avenue/Cloverdale Road/OR 222 corridor (within the Creswell UGB). 4 Similarly, heavy vehicles are approximately two to five percent of total traffic on OR 99 (within the Creswell UGB).

Public Transportation in Creswell includes one fixed‐route service and two on‐demand services. The fixed route service is provided by Lane Transportation District (LTD) Route 98. This service has four stops within downtown Creswell and operates seven days a week between Eugene and Cottage Grove.

South Lane Wheels offers two on‐demand shuttle services for any purpose. The door‐to‐door reservation‐based services are offered between the Eugene/Springfield metro area as well as the service area including Culp Creek to Lorane, between Lorane and Creswell, and Cottage Grove.

4 Counts collected at study intersections on June 7, 2017 6AM‐10PM. More details outlined in the Technical Appendix.

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Bicycle and Pedestrian volumes were significantly higher at study intersections located near the city center compared to outlying areas. The highest pedestrian volumes were found at following intersections:

 W Oregon Avenue and 1st Street,

 OR 222 (Oregon Avenue) and OR 99 (Front Street), and

 Harvey Road (5th Street) and W A Street. These intersections listed above are located near the downtown commercial zone, schools, and Holt Park. The pedestrian volumes at these intersections ranged from 94 to 173 between 2 p.m. and 7 p.m.

Bicycle volumes were relatively lower with the highest counts indicating between 10 and 14 bicycles from 2 p.m. to 7 p.m. The highest bicycle and volumes (based on count data collected between 2 p.m. and 7 p.m.) were found at following intersections:

 W Oregon Avenue and 1st Street,

 OR 222 (Oregon Avenue) and OR 99 (Front Street),

 OR 222 (Oregon Avenue) and OR 99 (Mill Street),

 OR 222 (Cloverdale Road) and I‐5 Southbound Ramps, and

 Harvey Road (5th Street) and Niblock Lane. The bicycle and pedestrian volumes for each intersection are included in the Technical Appendix and can be seen in Figure 3. It should be recognized that the count data reflect a 5‐hour snapshot in time and that bicycle and pedestrian activity may vary significantly across different days. Generally, weekend pedestrian and bicycle activity levels in the summer are higher than the activity levels of a typical weekday. The data is intended to give an overall indication of locations where bicycle and pedestrian activity is highest.

December 29, 2017 Page 9 of 52 Figure 3 - Pedestrian and Bicycle Activity

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96 - 183 Public Facility/Government Creswell TSP Update Technical Memorandum #6: Evaluate Existing Conditions

Factors that Affect How People Travel

Travelers are often influenced by a number of factors when deciding how to arrive at a destination. Deciding to walk, bike, use public transportation, or a private motor vehicle often depends on a balance between cost, time, and convenience of travel. Common factors affecting how people travel are discussed below.

Destination: Whether you are going to work, school, shopping, or to a park, your intended destination and the distance to it often influence the mode of transportation you choose. Trips that are shorter generally present a better opportunity to walk or bicycle; longer distance trips more often require the use of public transit or private motor vehicles.

Pedestrian and bicycle facilities: The availability of continuous sidewalks, accessible curb ramps, crosswalks, and bike facilities increases the comfort and access of walking and biking within a community and affects how people are willing to travel. A lack of these facilities, particularly on higher volume or higher speed roadways, discourages people from utilizing non‐motorized vehicle modes of transportation.

Where you work and how long it takes you to get there: Creswell residents who work outside of the city are more likely to commute via motor vehicle due to travel distance and commute time. The majority of Creswell workers traveling to locations outside the city, contributes to approximately 80 percent of Creswell commute trips using single occupant motor vehicles.

Availability of public transportation services: Distance to bus stops, frequency of service, route coverage, connections to other transportation options, and amenities at stops are some of the factors that play a role in a user’s decision to utilize public transportation. For those who cannot afford, are unable, or prefer not to drive, public transportation is an attractive option for longer trips.

Age and income: Demographic characteristics such as age and income play a key role in determining mode of transportation. Creswell residents with lower incomes, as well as the youngest and oldest residents, often account for more trips via walking, biking, and public transportation. Approximately 17 percent of Creswell residents are under 18 years of age, and approximately 16 percent are 65 years and older. Approximately seven percent of individuals in Creswell live on incomes below the poverty level.5

5 2011‐2015 American Community Survey 5 Year Estimates, Creswell, Oregon Community Facts. 2015. Accessed October 2017.

December 29, 2017 Page 11 of 52 Creswell TSP Update Technical Memorandum #6: Evaluate Existing Conditions

Available Transportation Options

This section describes the existing transportation infrastructure and services that people use on a daily basis in Creswell.

Roadway System Key north‐south routes include OR 99 (Goshen‐Divide Highway) and I‐5. OR 99 in Creswell consists of North Mill Street to the north and south Front Street to the south. OR 99 “jogs” east and west at Oregon Avenue, where it connects between Mill and Front streets while crossing the railroad tracks for the Central Oregon and Pacific Railroad. I‐5, OR 99, and the railroad tracks run generally parallel to each other through Creswell.

The Oregon Avenue/Cloverdale Road/OR 222 (Springfield‐Creswell Highway) corridor is the major east‐ west transportation route through the center of Creswell. West of Front Street (OR 99) is West Oregon Avenue, which connects Creswell to Lorane and other rural areas to the west. OR 222 connects to the east and consists of Oregon Avenue (west of Mill Street) and Cloverdale Road (east of Mill Street). OR 222 passes through Cloverdale to the east and connects northward to OR 58 (The Willamette Highway).

The crossing of OR 99 at Oregon Avenue/OR 222 is critical to the City of Creswell because this is the primary east‐west roadway through town. OR 99 does not have a dedicated grade‐separated rail crossing in the vicinity. Therefore, through traffic on OR 99 is directed to travel on Oregon Avenue and across the railroad tracks. The OR 99 traffic merges with OR 222 traffic (including trips from I‐5) resulting in high traffic volumes. To avoid queuing over the railroad tracks, both the westbound lanes on Oregon Avenue at Front Street (OR 99) have free movement, while the other approaches are stop controlled.

All roadways in Creswell, including the state highways, are two lanes with the exception of the I‐5 southbound ramps and OR 222 between Front Street and Emerald Parkway. This section of OR 222 includes a center left turn lane. The OR 99 jog (Oregon Avenue between Front Street and Mill Street) includes a left turn lane in each direction (four lanes total).

There are four major roadway bridges within the Creswell UGB. Two are located on OR 222, one crossing over I‐5 and another located just east of the I‐5 northbound ramps, over Hill Creek6. Two other bridges in Creswell cross over Hill Creek, one along Melton Road and another along Dale Kuni Road near the Emerald Valley Golf Club.

Connectivity: There is generally good roadway connectivity between the northern and southern portions of the city. However, the east‐west crossing opportunities along I‐5, OR 99, and the railroad tracks running north‐south through Creswell are very limited. The Oregon Avenue/Cloverdale Road/OR 222 corridor is the only major east‐west connection within the UGB that connects the western and

6 Oregon Department of Transportation. ODOT TransGIS: Structures Layer. 2017. Accessed July 2017.

December 29, 2017 Page 12 of 52 Creswell TSP Update Technical Memorandum #6: Evaluate Existing Conditions

eastern portions of the City. In other locations, there are cul‐de‐sacs or dead‐end streets that limit local connectivity. These types of roadways not only result in increased travel distance and time for motor vehicles but also make choosing to walk or bike more difficult.

Pedestrian System Walking plays a key role in Creswell’s transportation network, and planning for pedestrians helps the city provide a complete multi‐modal transportation system. It also supports healthy lifestyles and addresses a social equity issue ensuring that the young, the elderly, and those not financially able to afford motorized transport have access to goods, services, employment, and education.

Approximately two percent of commuters in the city walk to work, with another six percent utilizing public transportation, which often includes walking at the beginning or end of the trip. In addition to the work commute trips, walking trips are made to and from recreational areas, shopping areas, schools, or other activity generators. Continuous sidewalk connections between activity generators and along major roadways, in addition to safe crossing opportunities along major roadways, are desirable to encourage non‐motorized travel options. The walking network in Creswell is shown in Figure 4.

Pedestrian Facility Types Sidewalks are located along roadways, and are often separated from the roadway with a curb and/or planting strip. They typically have a hard, smooth surface, such as concrete. The city of Creswell requires a minimum of five foot wide sidewalks on arterials, collectors, and local streets. Sidewalks with a minimum width of six feet are required on commercial streets (collector and local).7 On state facilities, the Oregon Department of Transportation (ODOT) standard is a minimum sidewalk width of six feet, excluding curb.

The existing sidewalk network along Oregon Avenue/Cloverdale Road/OR 222 corridor is generally continuous on both sides between North 10th Street and Emerald Parkway, but sidewalks are not available east of Emerald Parkway. Sidewalks along OR 99 (North Mill Street and South Front Street) are generally lacking away from Oregon Avenue. The lack of sidewalks on OR 99 may be the most notable pedestrian facilities gap inside of the current city limits.

There are generally continuous sidewalks on many roadways in newer residential areas though gaps are evident in several areas. In some of the older areas of the city, sidewalks have not been constructed. While these mostly consist of low‐volume, low‐speed local streets, there are also segments of arterials and collectors where sidewalk infill is needed. Approximately 72% of collector roadway miles and 40% of arterial roadway miles have sidewalks on at least one side of the street in Creswell. Many of the segments without sidewalks are in underdeveloped areas outside of the city limits, but inside the UGB. In these areas, sidewalk infill can occur as part of future development.

7 City of Creswell Development Code, Chapter 3.4 Public Facilities

December 29, 2017 Page 13 of 52 Creswell TSP Update Technical Memorandum #6: Evaluate Existing Conditions

Although there are none in Creswell, shared‐use paths can serve a variety of non‐motorized travelers, including pedestrians, bicyclists, skateboarders, and runners. Shared‐use paths are typically paved (asphalt or concrete), but may also consist of an unpaved smooth surface as long as it meets Americans with Disabilities Act (ADA) standards. Shared‐use paths are usually wider (e.g., 10 to 14 feet) than an average sidewalk (e.g., 5 to 6 feet). Creswell does have some residential pedestrian paths that connect to roadway sidewalks but these are generally too narrow to be considered as multi‐modal paths.

Roadway shoulders serve as pedestrian routes in many rural Oregon communities and in older urban areas where sidewalk infill has not yet occurred. Shoulders may be adequate for some pedestrian travel but should be at least 4 feet wide. Shoulders may not always be in suitable condition for passage due to the presence of debris, vegetation, drainage ditches, swales or other obstructions. Roadway shoulders are often not suitable for travel for people with disabilities, particularly where traffic volumes and/or speeds are greater than those experienced on typical local streets. Using roadway shoulders for pedestrian travel may be acceptable on lower traffic volume roadways with less than 3,000 vehicles per day. In Creswell, this volume threshold is exceeded only on OR 99 and the Oregon Avenue/Cloverdale Road/OR 222 corridor. Adjacent vehicle speed is also an important consideration for using roadway shoulders for pedestrian travel.

Enhanced roadway crossings provide safer and more comfortable places for pedestrians to cross higher‐ volume and higher‐speed roadways. Without such crossings, major roadways like OR 99 and OR 222 can create a barrier effect for pedestrians, discouraging people from walking, even when making short trips. Enhanced crossings include many types of treatments, such as curb extensions, flashing yellow beacons, and traffic signals, but generally require more than just a marked crosswalk to be effective. Within Creswell, there are a few enhanced crossing opportunities along OR 222.

Traffic signals are located at the OR 222 intersections with OR 99 (Mill Street) and the I‐5 southbound ramps, with marked crosswalks on each approach. High visibility pavement treatments are used to emphasize the potential for pedestrian crossings along West Oregon Avenue. Marked crossings are illustrated in Figure 4.

ADA‐compliant ramps should be provided at all marked roadway crossings. Many intersections in Creswell were constructed before ADA standards were implemented and therefore do not include ADA‐ compliant ramps.

December 29, 2017 Page 14 of 52 Figure 4 - Existing Pedestrian Facilities I Christmas Tree Ln

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Bicycle System Riding bicycles also plays a key role in the transportation system’s ability to support healthy lifestyles and provide alternative travel choices to the automobile. While walking tends to be a competitive choice for trips under half a mile, bicycling tends to be suited for longer trips. Bicycle trips can often work well for distances between a half mile and three miles. Creswell’s relatively compact size makes biking a great choice for many trips, with local jobs and housing typically in bikeable proximity. Despite this, only about one percent of Creswell commuters currently travel by bicycle.

In addition to commute trips, biking trips are made for getting to and from school, shopping destinations, and other activity generators in the city, as well as for recreation. Creswell’s network of bicycle facilities along collectors and arterial roadways, shown in Figure 5, are primarily composed of bike lanes and shoulder bikeways. Bike connections can also be made via shared streets where speeds and traffic volumes are low.

Bicycle Facility Types Bike lanes are portions of the roadway designated specifically for bicycle travel using a striped lane and pavement stencils. ODOT standard width for a bicycle lane is six feet, with a minimum width against a curb or adjacent to a parking lane of five feet. A bicycle lane may be as narrow as four feet, but only in very constrained situations. Bike lanes are most appropriate on arterials and collectors, where high traffic volumes and speeds warrant greater separation of the travel modes. Through Creswell, bike lanes are present along segments of A Street, N Harvey Road, W Oregon Avenue, OR 222 (Oregon Avenue and E Cloverdale Road), Dale Kuni Road, Melton Road, Emerald Parkway, and Cobalt Lane.

Shoulder bikeways are paved roadways that have striped shoulders wide enough for bicycle travel, but do not use signing or pavement markings to designate the shoulder specifically for bicycles. ODOT recommends a minimum six‐foot paved shoulder to adequately provide for bicyclists, and a four‐foot minimum width in constrained areas. Roadways with shoulders less than four feet wide are considered shared streets. Some shoulder bikeways use warning signs to alert motorists to expect bicycle travel along the roadway. Shoulder bikeways in Creswell are located along segments of Niblock Lane, Camas Swale Road (West Oregon Avenue), OR 99 (N Mill Street and S Front Street), and OR 222 (E Cloverdale Road).

December 29, 2017 Page 16 of 52 Figure 5 - Existing Bicycle Facilities I Christmas Tree Ln Bike Facilities are shown only on Collector and Arterial E Harvey Rd Roadways.

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Shared streets include streets on which bicyclists and motorists share the same travel lane. The most suitable streets for shared bicycle use are those with low speeds (25 mph or less) and low traffic volumes (3,000 vehicles or fewer per day). Shared streets are generally signed as bicycle routes that serve to provide continuity to other bicycle facilities (e.g., bicycle lanes) or can be designated as a preferred route through the community. Common practice is to sign a route with standard Manual on Uniform Traffic Control Devices (MUTCD) green bicycle route signs with directional arrows and/or pavement markings (i.e., sharrows). Shared streets can have signs that highlight a special route or provide directional information in bicycling minutes or distance. Most local streets in the City meet the requirements of shared streets, but do not have signs or pavement markings classifying them as shared streets.

Bicycle parking facilities are a fundamental component of a bicycle network. Lack of safe and secure facilities for either short‐term or long‐term parking can be an obstacle to getting more people to bike. There is limited bicycle parking in the downtown commercial zone of the city, with parking available at City Hall and the Creswell schools. Public bicycle parking in Creswell is standard racks. There are no long‐ term bicycle parking/storage facilities available for public use.

Public Transportation System There is one fixed‐route bus service option available to Creswell residents, providing connections to the cities of Eugene and Cottage Grove. There are also two on‐demand options available as well.

Transit Transit services within the City of Creswell are provided by Lane Transportation District (LTD) Route 98. The buses travel from Eugene in the north through Creswell to Cottage Grove in the south and follow the same route back to Eugene. There are four bus stops in downtown Creswell, as shown in Figure 6. All of the existing bus stops in the City are located west of I‐5. Bus stops in Creswell are served eight times per day during the week (between the hours of 6:30 a.m. and 8:15 p.m. headed south and 6:15 a.m. and 9:15 p.m. headed north), three times on Saturday and two times on Sunday (between the hours of 9:00 a.m. and 6:00 p.m. headed south and 10:00 a.m. and 7:00 p.m. headed north on both days). Fares range from $1.75 for a single ride to $135 for a three‐ month pass (adult fare). South Lane Wheels offers two on‐demand shuttle services for any purpose. The Door to Door service reservations are based on a first call first served basis. The service area includes Culp Creek to Lorane, between London and Creswell, and Cottage Grove. Fares cost $1.00 per mile. A book of 10 tickets can be purchased for up to three miles for $25 and up to five miles for $45. South Lane Wheels also offers an additional on‐demand service called Metro Shuttle service. This service is also based on an advanced request and serves the Eugene/Springfield metro area. The fares for Creswell are $10 for a one‐way trip and $20 for a round trip. Attendants may ride for free if accompanying a rider who needs assistance.

December 29, 2017 Page 18 of 52 Figure 6 - Existing Transit Facilities

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Rail The Central Oregon and Pacific Railroad (COPR) operates the Siskiyou line that runs parallel to I‐5 and OR 99 through Creswell. The COPR operates approximately two freight and two local trains through Creswell on most days of the week. The COPR service allows connection to the Union Pacific Railroad in Eugene providing connections to national and international markets. Railroad service in Creswell is primarily used by businesses that rely on shipments of commodities such as lumber, grains, and chemicals.

The principal railroad crossing in Creswell is the at‐grade crossing on Oregon Avenue (OR 222) between Front Street and Mill Street, located approximately 1,000 feet west of the I‐5 southbound ramp terminal. The railroad currently performs siding operations that contribute to gate downtime and motor vehicle delays on Oregon Avenue (OR 222). When siding operations are performed during the peak traffic hour, impacts are significant. Residents have reported westbound queues on Oregon Avenue/Cloverdale Road that back up to the I‐5 interchange ramps. Such queuing has the potential to affect ramp operations such that southbound I‐5 ramp queues could extended back to mainline I‐5.

Air Creswell Municipal Airport ‐ Hobby Field is located on 102 acres east of I‐5 and north of OR 222. It is a public, General Aviation, non‐towered airport, owned and operated by the City of Creswell. Activities facilitated by the airport include; flight instruction, aircraft maintenance, skydiving, Chapter 31 of the Experimental Aircraft Association (EAA), flight simulation, and aerobatic rides/lessons.

The only existing access to the airport is from the south via Melton Road. While portions of Melton Road have sidewalks and bike lanes, other sections closer to the airport (including sections located outside the UGB) do not. Connections to the airport can be improved by providing alternative roadway access and consistent facilities for bicycle and pedestrian travel. The City of Creswell has prepared an Airport Master Plan8 consistent with FAA requirements. The plan identifies current and future facility needs and improvements required to maintain safe and efficient airport operations. Key findings are summarized below:

 The airport is included in the National Plan of Integrated Airport System (NPIAS) making it eligible for federal funding through the FAA.

 The airport is categorized as a “Community General Aviation Airport” in the 2000 Oregon Aviation Plan9 and it is included in Oregon’s “core system” of airports, which denotes its significance in Oregon’s aviation system.

8 Creswell Municipal Airport ‐ Hobby Field Airport Master Plan, Century West Engineering Corporation, 2007. 9 Oregon Aviation Plan, Oregon Department of Transportation, 2000.

December 29, 2017 Page 20 of 52 Creswell TSP Update Technical Memorandum #6: Evaluate Existing Conditions

 The airport has a single paved and lighted runway (3,101 feet by 60 feet) with a full‐ length parallel taxiway on its west side.

 The airfield facilities are generally designed to meet FAA Airport Design Group (ADG) I standards associated with small aircraft.

 Runway 15/33 has a pavement strength rating of 12,000 pounds for aircraft with single wheel landing gear configurations.

 Airfield lighting currently includes medium intensity runway edge lights (MIRL); runway threshold lights; a visual guidance indicator (VGI) on Runway 15; and the airport location.

 Landside facilities are located on the west side of the runway.

 Air traffic data provided by ODA (Acoustical Counting Program) for 2001‐2002 estimated 22,363 operations at the airport during the 12‐month cycle and 99 aircraft based at the airport.

 The Airport operates under day and night visual flight rules (VFR) and does not have instrumented approach capabilities.

 Aviation fuel and aircraft maintenance services are available at the airport. The plan identifies a series of recommendations to address the needs of the Creswell Municipal Airport as summarized below:

 A regular periodic schedule of pavement maintenance should be conducted on airfield pavements to maximize the useful life and optimize life cycle maintenance expenditures.

 Current and future design standards for Runway 15/33 are based on FAA airport reference code (ARC) B‐I (small aircraft).

 Based on a 2002 ODA‐sponsored pavement inspection, Runway 15/33 and the parallel taxiway are recommended for pavement rehabilitation by the middle of the current twenty‐year planning period.

 A 500‐foot north runway and parallel taxiway extension is recommended to enable the airport to accommodate approximately 99 percent of aircraft included in the small airplane fleet.

 Based on forecast demand, the airport’s west side hanger areas should be expanded in phases to provide additional T‐hangar and conventional hangar space.

 The remaining undeveloped portion of the south hangar area can accommodate one additional T‐hangar and several small/medium conventional hangars.

 A new T‐hangar area is recommended for the area immediately north of the existing tiedown apron.

December 29, 2017 Page 21 of 52 Creswell TSP Update Technical Memorandum #6: Evaluate Existing Conditions

 Long‐term changes in the terminal area are identified to accommodate future development of commercial hangars, apron reconfiguration and relocation of the aircraft fueling area.

 The relocation of the aircraft fueling facilities is planned as part of long‐term terminal area redevelopment.

 The northwest section of the airport is planned to accommodate future demand for small/medium conventional hangars.

 Development of a non‐precision instrument approach to Runway 33 is recommended.

 A small area (0.55 acres +/‐) of property acquisition is recommended near the southwest corner of the airport, immediately south of the south T‐hangar development area.

 An updated Exhibit “A” property plan is recommended to accurately depict airport property boundaries and acreages.

 An access road is identified to provide access to activities occurring on the east side of the runway.

 The City of Creswell and Lane County should ensure that airport overlay zoning reflects the updated boundaries of the FAR Part 77 airspace surfaces defined in this plan and complies fully with Oregon state law (ORS Ch. 836.600‐630).

 The City of Creswell and Lane County should ensure through their comprehensive planning that development of rural lands in the vicinity of the airport is compatible with airport activities.

 The City of Creswell should continue to require that applicants for all leases or development proposals involving construction of structures on the airport demonstrate compatibility with the airport’s protected airspace surfaces.

 Local planning and building officials should require that applicants for all proposed development within the boundaries of the airport overlay zone demonstrates a finding of “no objection” by FAA resulting from review of proposed development prior to approval of building permits, plats, binding site plans, etc.

 It is recommended that any proposed changes in land use or zoning within the boundaries of the airport overlay zone be coordinated with Oregon Department of Aviation (ODA) to ensure consistency with Oregon airport land use guidelines.

 The City of Creswell should adopt the ALP Report and drawings in a timely manner to guide airport activities.

 The City of Creswell should initiate the recommended improvements and major maintenance items in a timely manner, requesting funding assistance under FAA and other federal or state funding programs for all eligible capital improvements.

December 29, 2017 Page 22 of 52 Creswell TSP Update Technical Memorandum #6: Evaluate Existing Conditions

The closest airport with scheduled air freight service is the Mahlon Sweet Field in Eugene, approximately 24 miles to the north and west of the City of Creswell. Eugene’s airport provides commercial air service to a six‐county region in mid‐Oregon and is the fifth‐largest airport in the Pacific Northwest. The airport serves regional air cargo demands as well as general aviation.

Water No marine freight facilities exist in Creswell.

Pipeline The closest city with an oil pipeline terminal is Eugene. Gas transmission pipelines parallel I‐5.

Intermodal Facilities The closest city with a significant intermodal connector is Eugene.

December 29, 2017 Page 23 of 52 Creswell TSP Update Technical Memorandum #6: Evaluate Existing Conditions

How the Transportation System is Managed

Proper management of the transportation system helps ensure that facilities will serve their intended purpose and continue to allow for safe and efficient travel in the future.

Roadway Jurisdiction Different agencies typically have their own design and operating standards for their transportation facilities. Most roadways in Creswell are owned and maintained by the city. However, some roadways are under the jurisdiction of the state or county as described below. The jurisdiction map can be seen in Figure 7.

Street Functional Classification and Route Designations To manage the roadway network, Creswell classifies roadways based on a hierarchy according to the intended purpose of each road as shown in Figure 8. Roadways intended for high usage generally provide more efficient traffic movement (or mobility) through the city; roadways that primarily provide access to local destinations, such as businesses or residences, have lower usage. From highest to lowest intended usage, the classifications are described below.

 Arterials carry higher volumes of traffic and are often multi‐lane (more than two lanes) in urbanized areas. The primary function is mobility and to provide for intercity traffic with the access function being secondary. Dedicated bicycle facilities such as bike lanes or shoulders should be provided on all arterial segments.

 Major Collector carry less traffic than arterials and generally serve traffic from local streets and minor collectors to the arterial system. There is minimal prioritization given to individual accesses to protect system capacity and traffic safety, but they are allowed. Sidewalks and bike lanes are normally required.

 Minor Collectors serve local access needs of neighborhoods with limited through traffic. New developments generating significant traffic volume may be discouraged from locating on minor collectors that serve residential areas. Sidewalks are typically required, as are bike lanes where planned or determined to be needed.

 Local Streets provide direct access to properties in Creswell and are not intended to provide efficient travel for through traffic. These roadways are often lined with residences and are designed to serve lower volumes of traffic at low speeds.

December 29, 2017 Page 24 of 52 Figure 7 - Jurisdiction Map

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Functional Classification Major Collector Railroad Freeway Minor Collector Urban Growth Boundary Arterial Local Street City Limit Creswell TSP Update Technical Memorandum #6: Evaluate Existing Conditions

The Federal Highway Functional Classification categories are similar, but currently do not align with Creswell’s classification categories. Amending Creswell’s functional classification categories to align them with the federal categories will support future federal aid funding eligibility for streets designated as minor collectors or higher. The Federal Highway Functional Classification categories applicable to Creswell include: Other Principal Arterial, Minor Arterial, Major Collector, Minor Collector and Local.

State Highway Classification: I‐5 is classified as an Interstate Highway and part of the National Highway System (NHS). OR 222 and OR 99 are classified by the state as District Highways. District Highways typically have county‐wide significance, providing efficient movement between small urbanized areas, rural centers, urban hubs, and local traffic.

Truck Routes: According to the 1998 Creswell TSP, within Creswell, a truck route is assigned as a primary access for trucks to industrial areas. City truck routes are defined for I‐5, OR 99, Cloverdale Road (OR 222), Oregon Avenue, Dale Kuni Road, Cobalt Lane, and Harvey Road (north of Cobalt Lane and West Lane).

Seismic Lifeline Routes: The Oregon Highway Plan Goal 1, Policy 1E, designates routes for emergency response in the event of an earthquake, categorized as Tier 1, 2 and 3. In Creswell, I‐5 is classified as a Tier 1 lifeline route. A functioning Tier 1 lifeline system provides traffic flow through the state and to each region. The Tier 1 lifelines are considered to be the most significant and necessary to ensure a functioning statewide transportation network. No local lifeline routes are currently identified.

Mobility Standards/Targets Mobility standards or targets set thresholds for the maximum amount of congestion that is determined to be acceptable for a given roadway by the agency of jurisdiction. These standards/targets often vary with functional classification or posted speed, with more congestion deemed to be acceptable for streets with lower classifications (e.g., local streets).

The motor vehicle mobility standards that are used as standards or targets are explained below.

 Level of Service (LOS): A “report card” rating (A through F) based on the average delay experienced by motorists. LOS A, B, and C indicate conditions where traffic moves without significant delays over periods of peak hour travel demand. LOS D and E are progressively worse conditions. LOS F represents conditions where average vehicle delay has become excessive and traffic is highly congested.

 Volume‐to‐capacity (v/c) ratio: A decimal representation (between 0.00 and 1.00) of the proportion of capacity that is being used (i.e., the saturation). It is determined by dividing the peak hour traffic volume by the hourly capacity of a given facility. A lower ratio indicates smooth operations and minimal delays. As the ratio approaches 1.00, congestion increases and performance is reduced. At 1.00, capacity has been reached and the facility is oversaturated, resulting in long delays.

December 29, 2017 Page 27 of 52 Creswell TSP Update Technical Memorandum #6: Evaluate Existing Conditions

All intersections under state jurisdiction must comply with the volume to capacity (v/c) ratio targets in the Oregon Highway Plan (OHP). The ODOT v/c targets are based on highway classification and posted speeds.

Lane County identifies mobility standards (LOS E at all intersections, minimum v/c of 0.95 at 2‐way stop or yield‐controlled intersections and 0.85 v/c at other study intersections) but defers to local agency standards within UGB areas. 1

The City of Creswell does not currently have adopted mobility standards. For purposes of identifying potential mobility issues in the TSP, the County standard will be applied initially for study intersections off the ODOT system. City mobility standards will be reviewed as part of the TSP Transportation Standards (Technical Memorandum #10). The mobility standards used in the TSP evaluation of traffic operations for each study intersection are identified later in this memorandum.

Access Spacing Proper access spacing (i.e., the spacing of street and driveway intersections along a street) balances efficient, safe, and timely travel with access to individual destinations. Proper spacing between access points can reduce collision rates, vehicle delay and potentially eliminate the need for additional roadway capacity. As redevelopment occurs along roadways in the City, the appropriate access spacing standards should be met wherever feasible.

Current City Spacing Standards Creswell’s 1998 TSP contains access spacing guidelines for each street functional classification. Access spacing standards (minimum spacing) from the Creswell TSP are shown in Table 3. The City access spacing standards apply for roadways under City jurisdiction (as shown in Figure 7). Table 3: Creswell Existing Access Spacing Roadway Type Access Spacing

Arterial 150 feet

Major Collector 75 feet

Minor Collector 50 feet

Local Street 25 feet

December 29, 2017 Page 28 of 52 Creswell TSP Update Technical Memorandum #6: Evaluate Existing Conditions

Current ODOT Spacing Standards ODOT’s current access spacing standards for public and private approaches to state highways vary depending on state highway classification, area type, and posted speed. The current applicable standards on OR 99 and OR 222 are shown in Table 4. It is important to note that ODOT access spacing standards and policies are subject to change. The current adopted standards are included for reference purposes. Table 4: ODOT Access Spacing Standards10

ODOT Minimum Intersection and Highway Segment Posted Speed Driveway Spacing (center to center)

OR 99

Near North end of UGB 55 mph 700 feet

Copper Way to Willis Court 40 mph 500 feet

Willis Court to B Street 30 mph 350 feet

B Street to D Street 25 mph 250 feet

D Street to E Park Drive 35 mph 350 feet

E Park Drive to Market Road 45 mph 500 feet

Near South end of UGB 55 mph 700 feet

OR 222

Near OR 99 (Mill Street to Front Street) 25 mph 250 feet

Mill Street to Emerald Parkway 35 mph 350 feet

Emerald Parkway to Dale Kuni Road 45 mph 500 feet

Near East end of UGB 55 mph 700 feet

In comparison to ODOT access spacing standards, the recommended City standards for OR 99 and OR 222 allow more frequent (closer spacing) for accesses. The City standard identifies a consistent minimum spacing of 150 feet for all segments, regardless of speed. The ODOT standard is 250 feet where the posted speed limit is 25 mph and the minimum required distance between accesses increases with higher speed limits.

10 ODOT Access Management Standards – Oregon Administrative Rules Chapter 734, Division 51, June 30, 2014. http://or22safety.org/files/library/oar734‐051.pdf

December 29, 2017 Page 29 of 52 Creswell TSP Update Technical Memorandum #6: Evaluate Existing Conditions

Access Inventory on State Highways in Creswell An access inventory was conducted along OR 99 and OR 222 within Creswell to identify the number of existing approaches (driveways and public streets). Table 5 compares the approximate average spacing of approaches on the segments of OR 99 and OR 222 to the applicable spacing standards (previously identified in Table 4). Despite the differences in standards many sections of the state highways either meet or do not meet both ODOT and City standards. On OR 99, both City and ODOT spacing standards are generally not met on the sections between Willis Court (to the north on Mill Street) and D Street (to the south on Front Street.) On OR 222, both City and ODOT spacing standards are met between Front Street and Mill Street (where there are no driveways) and not met on the section between Emerald Parkway and Dale Kuni Road. Table 5: Existing Access Spacing within Creswell

Average ODOT Spacing Creswell Spacing Segment Begins Segment Ends Posted Speed Access Spacing Standard (feet) Standard (feet)1 (feet) OR 99

North UGB Willis Court 40 – 55 mph <200 500‐700 150

Willis Court B Street 30 mph <150 350 150

B Street D Street 25 mph <150 250 150

D Street S Mill Street 35 – 45 mph <150 350‐500 150

S Mill Street Market Road 45 – 55 mph <250 500‐700 150

Market Road South UGB 55 mph <500 700 150

OR 222

OR 99 (S Front OR 99 (S Mill 25 mph 250 250 150 Street) Street)

OR 99 (S Mill Emerald 25 – 45 mph <200 250‐500 150 Street) Parkway

Emerald Parkway Dale Kuni Road 45 – 55 mph <150 500‐700 150

Dale Kuni Road East UGB 55 mph <250 700 150 1 OR 99 and OR 222 are classified by the City as arterial roadways. Creswell’s spacing standard is 150 feet for arterial roadways. BOLD Standard (ODOT or City) is not met. Dark gray‐shaded sections are generally not consistent with both ODOT and City standards. Light gray‐shaded sections are generally not consistent with ODOT standards but meet City standards. Unshaded sections are generally consistent with both ODOT and City Standards

December 29, 2017 Page 30 of 52 Creswell TSP Update Technical Memorandum #6: Evaluate Existing Conditions

Condition of the Existing Transportation System

The measures described in the previous section were used to assess Creswell’s existing transportation system. The findings are summarized below.

Condition of the Pedestrian System The presence of pedestrian facilities in Creswell was previously addressed and mapped in Figure 4. Field review of these facilities noted that the design and condition of sidewalks varies. Maintenance of pedestrian facilities is important, but is an ongoing operational function of the city. Maintenance priorities will not be addressed as part of the long‐range TSP. The TSP will identify design standards and best practices to ensure new facilities are constructed to comply with ADA requirements later in the TSP process.

Pedestrian Level of Traffic Stress Assessment A Pedestrian Level of Traffic Stress (PLTS) assessment was completed for arterial and collector roadways in Creswell to characterize the quality of pedestrian environment provided on major streets. The level of stress experienced by pedestrians was assessed by considering various roadway characteristics and applying a context‐based, subjective stress rating of “Lowest/Low/Moderate/High” where lowest indicates the least stressful environment and high indicates the most stressful. The assessment methodology follows guidelines set forth by ODOT.11

Roadway characteristics that are considered to impact the comfort and safety of pedestrian travel include:

 presence of sidewalks or paths,

 presence of buffers from traffic (landscaped or others),

 number of travel lanes,

 width of the outside travel lane,

 width of a shoulder or bicycle lane,

 speed of motorized traffic, and

 lighting. Each roadway in Creswell that is classified as an arterial or collector was evaluated and rated based on the following levels of stress:12

 PLTS 1 (Lowest): Represents little to no traffic stress and requires little attention to the traffic situation. This is suitable for all users including children 10 years of age and

11 Oregon Department of Transportation Analysis Procedure Manual Version 2. Updated February 2017.

December 29, 2017 Page 31 of 52 Creswell TSP Update Technical Memorandum #6: Evaluate Existing Conditions

younger, groups of people and people using a wheeled mobility device (WhMD13). The facility is a sidewalk or shared‐use path with a buffer between the pedestrian and motor vehicle facility. Pedestrians feel safe and comfortable on the pedestrian facility. Motor vehicles are either far from the pedestrian facility and/or traveling at a low speed and volume. Everyone is willing to use this facility.

 PLTS 2 (Low): Represents little traffic stress but requires vulnerable users like young children to pay more attention to the traffic situation. PLTS 2 is generally suitable for children over 10, teens and adults. All users should be able to use the facility, but some factors may limit people using WhMDs. Sidewalk condition is generally good with limited areas of fair condition. Roadways may have higher speeds and/or higher volumes. Most people are willing to use this facility.

 PLTS 3 (Moderate): Represents moderate stress and is suitable for adults. An able‐ bodied adult would feel uncomfortable but safe using this facility. This includes higher speed roadways with small buffers. Small areas in the facility may be impassable for a person using a WhMD and/or require the user to travel on the shoulder/bike lane/street. Some users are willing to use this facility.

 PLTS 4 (High): Represents high traffic stress. Only able‐bodied adults with limited route choices would use this facility. Traffic speeds are moderate to high with narrow or no pedestrian facilities provided. Typical locations include high speed, multilane roadways with narrow sidewalks and buffers. This also includes facilities with no sidewalk. This could include evident trails next to roads or ‘cut through’ trails. Only the most confident or trip‐purpose driven users will use this facility. The results of the PLTS assessment can be seen in Figure 9. The section of W Oregon Avenue directly west of OR 99 (S Front Street) provides the lowest stress pedestrian route on an arterial or collector roadway in Creswell. Emerald Parkway and N 1st Street provide the best experience for pedestrians on continuous major streets. Street segments without sidewalks, such as OR 99 (portions of N Mill Street and S Front Street), OR 222 (Cloverdale Road) east of the I‐5 interchange, S Mill Street, and S 10th Street, provide a high stress experience. N Harvey Road and Niblock Lane are located near schools and are considered to be high stress facilities. These routes are important connections to provide safe travel to the younger and more vulnerable users in the area. Roadways near transit stops in the downtown commercial zone may also be considered important connections for providing safe alternatives for those who cannot or choose not to drive.

13 A wheeled mobility device (WhMD) includes walkers, manual wheelchairs, power base chairs, and light weight scooters. Each of these devices requires the operator to maneuver and set the direction of travel. All of these devices can be operated independently and do not require additional people to maneuver the device. The American with Disability Act (ADA) (1990) sets limits on the vertical change in a surface to 0.5 inches.

December 29, 2017 Page 32 of 52 Figure 9 - Pedestrian Level of Traffic Stress

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Pedestrian Level of Traffic Stress Railroad Intersection Stress Segment Stress Lowest Moderate Lowest Moderate Urban Growth Boundary

Low High Low High City Limit Creswell TSP Update Technical Memorandum #6: Evaluate Existing Conditions

The PLTS analysis also considers the difficulty of crossing streets. Significant locations where pedestrian crossings may be difficult or unpleasant include the following intersections:

 Niblock Lane and N Harvey Road ‐ located near schools and only the south leg across Harvey Road has a marked crosswalk,

 C Street and S 1st Street ‐ no marked crosswalks despite being located adjacent to a popular transit stop adjacent to the Park & Ride lot,

 Melton Road and Emerald Parkway ‐ no marked crosswalks despite a relatively high pedestrian volume, and

 Dale Kuni Road and Emerald Parkway ‐ no marked crosswalks despite a relatively high pedestrian volume.

Pedestrian Access to Activity Generators

The following list summarizes key issues and needs for people who want to walk to Creswell’s activity generators (see Figure 1).  East‐west connectivity is limited by I‐5, OR 99, and the railroad running north‐south through the center of the city.

 Limited pedestrian crossings and incomplete sidewalks on N Harvey Road limit neighborhood access to schools and the Cobalt Activity Center.

 Limited designated crossing opportunities and moderate to high stress pedestrian facilities (incomplete and non‐ADA compliant ramps) limit access to the downtown commercial zone beyond Oregon Avenue.

 Melton Road is the only available route to Garden Lake Park and the Airport; it is a moderate to high stress pedestrian facility.

 Moderate to high stress crossings along OR 222 (Oregon Avenue and Cloverdale Road) east of 1st Street.

 Lack of crosswalks and complete sidewalks near transit stops.

 There are no currently designated shared use paths (though some residential areas do include off‐street pedestrian connections).

Community‐Reported Pedestrian Issues Community members typically experience issues that are not fully captured through technical analysis. These may include uncomfortable walking conditions, significant sidewalk gaps on high demand local streets, or other important routes or crossing locations that making walking difficult. The public involvement process will be used to solicit feedback from the community to identify these issues and they will be added to the draft memorandum once received.

December 29, 2017 Page 34 of 52 Creswell TSP Update Technical Memorandum #6: Evaluate Existing Conditions

Initial community feedback indicates that crossing the intersection of OR 99 (Front Street) at OR 222 (Oregon Avenue) is very uncomfortable for pedestrians. Other stressful crossings for people who are walking include the Emerald Parkway intersections at Cloverdale Road (OR 222) and Melton Road, the Oregon Avenue crossing at 5th Avenue, the I‐5 ramp intersections on Cloverdale Road (OR 222), and the intersection of OR 99 (Mill Street) at OR 222 (Oregon Avenue). High motor vehicle speeds also contribute to stressful walking conditions along D Street, S 10th Street, and Cloverdale Road (OR 222) – particularly near the I‐5 overpass. In general, arterial and collector roadways on the east side of Creswell were not considered to be very pedestrian‐friendly.

Condition of the Bicycle System The presence of bicycle facilities in Creswell was previously addressed and mapped in Figure 5. Field review performed for the TSP generally found existing bicycle facilities to be in good condition. Maintenance of bicycle facilities is an ongoing operational function of the city that will not be part of the long‐range TSP. The TSP will identify design standards and best practices later in the TSP process to ensure new facilities are constructed to provide for safe bicycle travel.

Bicycle Level of Traffic Stress Similar to the PLTS assessment, a “Bicycle Level of Traffic Stress” (BLTS) analysis was conducted to characterize the bicycling experience on the arterial and collector system. The assessment methodology follows guidelines set forth by ODOT.14 This methodology breaks road segments into four classifications for measuring the effects of traffic‐based stress on bicycle riders. The measure of traffic stress quantifies the perceived safety issue of being in close proximity to vehicles, primarily considering the physical distance to traffic and the speed of traffic. The methodology does not include explicit consideration of traffic volume, since the stress caused by proximity is present regardless of the amount of traffic. The four levels of stress are described below:

 BLTS 1 (Lowest): Represents little traffic stress and requires less attention, so is suitable for all cyclists. This includes children that are trained to safely cross intersections alone and supervising riding parents of younger children. Generally, the age of 10 is assumed to be the earliest age that children can adequately understand traffic and make safe decisions, which is also the reason that many youth bike safety programs target this age level. Traffic speeds are low and there is no more than one lane in each direction. Intersections are easy to cross by children and adults. Typical locations include residential local streets and separated bike paths/cycle tracks.

 BLTS 2 (Low): Represents little traffic stress but requires more attention than young children can handle, so is suitable for teen and adult cyclists with adequate bike handling skills. Traffic speeds are slightly higher but speed differentials are still low and roadways can be up to three lanes wide in total for both directions. Intersections are not

14 Ibid. p.33

December 29, 2017 Page 35 of 52 Creswell TSP Update Technical Memorandum #6: Evaluate Existing Conditions

difficult to cross for most teenagers and adults. Typical locations include collector‐level streets with bike lanes or a central business district.

 BLTS 3 (Moderate): Represents moderate stress and suitable for most observant adult cyclists. Traffic speeds are moderate but can be on roadways up to five lanes wide. Intersections are still perceived to be safe by most adults. Typical locations include low‐ speed arterials with bike lanes or moderate speed non‐multilane roadways.

 BLTS 4 (High): Represents high stress and is suitable only for experienced and skilled cyclists. Traffic speeds are moderate to high and can be on roadways from two to over five lanes wide. Intersections can be complex, wide, and or high volume/speed that can be perceived as unsafe by adults and are difficult to cross. Typical locations include high‐ speed or multilane roadways with narrow or no bike lanes.

The results of the BLTS analysis are illustrated in Figure 10. The speed of adjacent traffic is a major factor in this analysis, so corridors with lower posted speeds tend to have more favorable ratings, while corridors with higher posted speeds (over 35 mph) tend to have less favorable ratings. On‐street parking and available parking width also affect the stress rating. The added conflict with vehicles attempting to park tends to increase the level of stress for people on bikes.

Higher speed sections of OR 99 (N Mill Street and S Front Street), S Mill Street, the east end of OR 222 (Cloverdale Road), and Dale Kuni Road are high stress routes for people on bikes. Even roadways with bicycle lanes present (e.g., N Harvey Road) may rate as having high traffic stress when vehicle speeds are high. Wider shoulders, buffered bike lanes or separated facilities such as shared‐use paths may be considered appropriate on these higher speed roadway sections.

Other major street segments, such as W Oregon Avenue and OR 222 near downtown, are considered to be low or moderate stress because of lower speeds and/or the presence of bike lanes. These roadway sections may be comfortable for some adults, but may not be considered acceptable for children riding to school and other less confident riders. The BLTS analysis also considers the difficulty of crossing streets (as shown in Figure 10) based primarily on motor vehicle speeds and number of lanes to cross. Significant locations where bicycle crossings may be difficult or unpleasant include intersections where motor vehicle speeds exceed 35 mph along segments of OR 222 (Cloverdale Road), OR 99 (N Mill Street & S Front Street), N Harvey Road and Dale Kuni Road.

Lower speed roadways such as N 1st Street and D Street already function well for people riding bikes. These routes have the lowest stress rating and their use by people on bikes may be encouraged by applying pavement markings and signage as part of a larger future bike network.

Lighting is another factor that can contribute to BLTS. For example, the segment of Niblock Lane west of N Harvey Road that is classified as having a low level of stress would rate as having the lowest stress if lighting was present.

December 29, 2017 Page 36 of 52 Figure 10 - Bicycle Level of Traffic Stress

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Low Low High City Limit Creswell TSP Update Technical Memorandum #6: Evaluate Existing Conditions

Bicycle Access to Activity Generators

The following list summarizes key issues and needs related to access for people who would like to bike to Creswell’s activity generators (see Figure 1).  East‐west connectivity is limited by I‐5, OR 99, and the railroad running north‐south through the center of the city.

 High stress travel for people on bikes along segments of OR 222 and OR 99.

 Limited bike facilities connecting residential areas to schools.

 Melton Road is the only available route to Garden Lake Park and the Airport; it is a moderate to high stress bicycle facility.

 Limited number of designated bike facilities connecting residential areas to the downtown commercial zone and transit stops.

 Segments of Harvey Road and S 10th Street near schools and the Cobalt Activity Center are considered high stress which may be uncomfortable to younger and less experienced bicycle riders.

Community‐Reported Bicycle Issues Community members typically experience issues that are not fully captured through technical analysis. For bicycle facilities this may include obstructions in bike lanes, high vehicle‐conflict areas, difficulty finding bike parking, or challenging connections on the local street system. The public involvement process will be used to solicit feedback from the community to identify these and other issues. They will be added to the draft memorandum once received. Initial community feedback indicates that traveling through the intersection of OR 99 (Front Street) at OR 222 (Oregon Avenue) is very uncomfortable for people riding bikes.

Condition of the Public Transportation System Creswell residents have fixed route and on‐demand transit services that connect between Eugene and Cottage Grove. Fixed route service via LTD Route 98 is provided eight times per day during weekdays including morning, afternoon, and evening commuting periods, but late‐night service is not currently available.

Transit service coverage is limited to four total stops all located in the downtown commercial zone west of I‐5. The 2016 ridership data for LTD Route 98 are summarized in Table 6. The stop located at S 1st Street/C Street had the highest ridership activity with approximately half of the total ridership in Creswell. This is the location of the Park and Ride and the only stop in Creswell that has bus stop amenities such as a sheltered bus stop and secure bike parking.

December 29, 2017 Page 38 of 52 Creswell TSP Update Technical Memorandum #6: Evaluate Existing Conditions

Table 6: 2016 LTD Route #98 Ridership in Creswell

Total Annual Rides Bus Stop Average Weekday Rides (On/Off) (On/Off)

S 2nd Street/F Street 4,722 18.52

S 1st Street/C Street 15,360 60.23

OR 222 between N Mill Street and I‐5 SB 8,840 34.66 Ramps (Westbound)

OR 222 between N Mill Street and I‐5 SB 1,852 7.27 Ramps (Eastbound) Source: Lane Transit District

As discussed in the mode share section, Creswell has a high portion of residents commuting via public transportation in comparison to neighboring cities and a high proportion of City residents travel to Eugene/Springfield for work. Enhancing bicycle and pedestrian connections to bus stops, providing more bus stop amenities such as bus shelters or secure bike parking can contribute to making transit more attractive. Furthermore, there are no transit stops on the east side of the city (east of I‐5). Improving the transit service frequency, hours of operation, or coverage area in Creswell also has the potential to further increase the use of public transportation in the community.

Condition of the Motor Vehicle System The level of congestion experienced at the 15 study intersections was evaluated during the peak demand (design hour) time period. The design hour volumes, including adjustments to reflect peak summer season travel were previously shown in Figure 2. The results of this traffic operations analysis15 are shown in Table 7. The applicable mobility targets/standards are included to indicate where congestion is worse than levels determined to be acceptable. A more detailed intersection operations table is included in the Technical Appendix.

As shown in the table, all intersections operate within the identified mobility standards/targets under existing conditions and most study intersections operate with little congestion (LOS C or better). However, one study intersection stands out as having higher delay than the others: OR 222 (Oregon Avenue) at OR 99 (Front Street) where the stop‐controlled movements operate up to LOS F. As confirmed in the field, the eastbound movements have significantly higher delay than other approaches.

The OR 222 (Oregon Avenue) at OR 99 (Front Street) intersection is located west of the railroad and allows free westbound movements while all other movements are stop controlled. The identified v/c

15 Traffic operations are evaluated using 2010 Highway Capacity Manual (HCM) methodology for unsignalized intersections and the 2000 HCM methodology for signalized intersection, as identified in the Methodology Memorandum including in the Technical Appendix.

December 29, 2017 Page 39 of 52 Creswell TSP Update Technical Memorandum #6: Evaluate Existing Conditions

ratio at the intersection (0.89) approaches the mobility target (v/c ratio 0.95) under existing conditions. The high number of westbound left‐turns, eastbound through movements, and northbound right‐turns adjoined with the traffic control configuration, are the main contributors to the high delay identified in the intersection operations analysis.16

Field observations during the p.m. peak hour demonstrated eastbound queues from the signalized intersection of OR 222 (Oregon Avenue) and OR 99 (Mill Street) affecting operations at the adjacent intersection. Figure 11 shows the eastbound traffic backup at the OR 99 (Front Street) intersection.

Figure 11: Eastbound Vehicle Queue on W Oregon Avenue just west of OR 99 (Front Street) Future traffic growth is likely to increase the delay and queuing between the two intersections at the OR 99/OR 222 crossing. Future conditions analysis (Technical Memorandum #8) will address the impact of traffic growth at each study intersection.

It is also important to note that the operations analysis does not account for train crossings. Strategies should be pursued to improve coordination with rail operations, as these can regularly block roadway crossings and result in significant queues, including back to I‐5 interchange ramps.

16 Due to atypical traffic control at the OR 222/OR 99 (Front Street) intersection, the intersection operations were determined by analyzing an adjusted, two‐way stopped approach configuration that is considered approximately equivalent to the existing configuration. This adjusted configuration accounts for conflicting turn movements and capitalizes on the fact that the north left leg has no approach traffic.

December 29, 2017 Page 40 of 52 Creswell TSP Update Technical Memorandum #6: Evaluate Existing Conditions

Table 7: Existing Intersection Operations for the Design Hour (2017 30th Highest Hour) Traffic Operations V/C Mobility Target/ Average Intersection (critical Standard Delay LOS movement (seconds) approach) Signalized Intersections OR 222 (Oregon Avenue) @ OR 99 V/C < 0.95 14 B 0.74 (Mill Street) OR 222 (Cloverdale Road) @ I‐5 SB V/C < 0.80 15 B 0.56 Ramps Unsignalized Intersections Harvey Road (5th Street) @ Niblock LOS E & v/c < 0.95 11 B 0.06 (WB) Lane Harvey Road (5th Street) @ A Street* LOS E & v/c < 0.95 8 A 0.20 (SB) Oregon Avenue @ 10th Street LOS E & v/c < 0.95 15 C 0.18 (SB) Oregon Avenue @ 1st Street* LOS E & v/c < 0.95 17 C 0.66 (WB) OR 222 (Oregon Avenue) @ OR 99 v/c < 0.95 53 F 0.89 (SB) (Front Street) 17 OR 99 (Front Street) @ S Mill Street v/c < 0.90 11 B 0.10 (WB) OR 222 (Cloverdale Road) @ I‐5 NB v/c < 0.80 34 D 0.64 (NB) Ramps OR 222 (Cloverdale Road) @ Melton v/c < 0.90 13 B 0.14 (SB) Road OR 222 (Cloverdale Road) @ Emerald v/c < 0.90 15 B 0.45 (SB) Parkway OR 222 (Cloverdale Road) @ Dale Kuni v/c < 0.90 13 B 0.07 (NB) Road Melton Road @ Emerald Parkway LOS E & v/c < 0.95 13 B 0.24 (WB) Dale Kuni Road @ Emerald Parkway LOS E & v/c < 0.95 10 A 0.07 (WB) OR 99 (Mill Street) @ Martin Road v/c < 0.90 10 B 0.01 (WB) Signalized intersections: Unsignalized intersections: Delay = Average Intersection Delay Delay = Approach Delay (seconds) on critical movement (seconds) V/C = Volume‐to‐Capacity Ratio on critical movement V/C = Volume‐to‐Capacity Ratio LOS = Level of Service on critical movement LOS = Level of Service *All‐way Stop‐Control EB/WB/SB/NB = Eastbound/Westbound/Southbound/Northbound critical movement

17 Due to the atypical traffic control at the OR 222/OR 99 (Front Street) intersection, an equivalent operations analysis methodology was used to estimate the intersection LOS and v/c ratio. This method uses reoriented approach lane configurations while still maintaining the same traffic conflicts and intersection volumes.

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Community‐Reported Motor Vehicle Issues Community members typically experience issues that are not fully captured through technical analysis. The public involvement process will be used to solicit feedback from the community to identify these issues and they will be added to the memorandum once received.

Safety Evaluation The safety of roadways and intersections in Creswell were evaluated through an analysis of crash data in Creswell. The crash data were reviewed to identify potential patterns related to safety for motor vehicle, pedestrian, and bicycle modes of travel.

Crash Characteristics The most recent five years of available crash data (2011‐2015) for all roadways in Creswell was obtained from ODOT for this analysis. Over that five‐year period, there were 150 crashes within the UGB (average of about 30 per year). Breakdowns of crash types and severities are provided in Figures 12 and 13.

Crash types vary, but the majority involved rear‐end collisions, turning movements, or drivers leaving the road and hitting a fixed object (e.g., mailbox, sign post, ditch, tree, etc.). More than half of the rear‐ end collisions occurred due to drivers following too closely, while more than half of the turning collisions were caused by drivers failing to yield the right‐of‐way (ROW). The majority of the fixed object collisions resulted from drivers performing improper turning maneuvers.

Pedestrian, Other, 4 Head On, 3 2 Backing, 6

Sideswipe, Rear End, 12 50

Angle, 12

Fixed Object, 24

Turning, 37

Figure 12: Crash Types in Creswell (2011‐2015)

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Crash severity is categorized using the KABCO scale, as defined below.

 K – Fatal Crash

 A – Disabling or Incapacitating Injury

 B – Documented Injury

 C – Possible Injury

 O – Property Damage Only (PDO) There were no fatalities in any of the 150 collisions from 2011 to 2015. Most crashes resulted in only property damage or minor injuries. However, there were two crashes resulting in serious injuries (i.e., incapacitating injury). One of these two crashes was a rear‐end collision that occurred during the day in snowy weather along I‐5. The second was the result of a fixed object collision caused by the driver performing an improper turn into a fixed object near the intersection of Blue Jay Loop and Creswood Drive.

PDO 79

Injury C 44

Injury B 25

Injury A 2

Figure 13: Crash Severities in Creswell (2011‐2015)

Figure 14 provides a map of crash locations throughout the city. Of the 150 crashes, 36 occurred on I‐5 or the I‐5 ramps at the OR 222 interchange. The remaining 114 crashes occurred off the freeway system. The majority of these crashes occurred along the Oregon Avenue/Cloverdale Road/OR 222 corridor.

December 29, 2017 Page 43 of 52 Figure 14 - Crashes in Creswell (2011-2015)

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Auto Crash City Limit Creswell TSP Update Technical Memorandum #6: Evaluate Existing Conditions

Pedestrian Safety

As shown in Figure 14, there were three collisions involving pedestrians documented over the five‐year span in Creswell. All three collisions resulted in moderate to minor injuries and occurred during the day. The weather conditions ranged from cloudy to clear with dry road surface conditions. Two out of the three crashes were located at the intersections on D Avenue with Front Street and 4th Street. The cause of these crashes was the pedestrian walking illegally in the roadway and the motorist making an improper turn. The third crash was located along Kings Row between S 7th Street and Holbrook Lane. The cause of this crash was the pedestrian illegally walking in the roadway.

Bicycle Safety

From 2011 to 2015, three collisions involved bicyclists. Of the three collisions, two occurred at the intersection OR 99 and Oregon Avenue (Mill Street and Front Street) and one occurred at the intersection of N 6th Street and Hillegas Ave. Two of the collisions were caused by the driver turning into the bicyclist. The bicyclists were not visible to the driver. Both of the collisions occurred during clear weather conditions, one in the afternoon and one in the evening. The third collision was due to the driver disregarding the traffic signal. Two of the collisions occurred when it was dusk/night. Bicyclists sustained moderate to minor injuries in all three collisions in this five‐year time period, but no fatalities occurred.

Intersection Crashes Crash rates (a measure of the amount of crashes experienced with consideration for the amount of traffic served) for the 15 study intersections are summarized and compared to the critical crash rate and the 90th percentile crash rate in Table 8.

The critical crash rate and the 90th percentile crash rate provide thresholds against which each intersection’s crash history can be compared. The critical crash rate compares an intersection’s crash history to that of other similar intersections in Creswell. The 90th percentile crash rate compares an intersection’s crash history to that of other similar intersections across Oregon. Where an intersection’s crash rate is greater than either of these two thresholds, it is an indication that a problem might exist and that further study is warranted.

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Table 8: Intersection Crash Rates in Creswell (2011 – 2015) Intersection Crashes Crash Critical Crash 90th Percentile (Five Years) Rate a Rate b Crash Rate c Signalized OR 222 (Oregon Avenue) and OR 99 (Mill Street) 16 0.51 0.66 0.86 OR 222 (Oregon Avenue) and I‐5 SB Ramps 12 0.38 0.66 0.86 Two‐Way stop Controlled Harvey Road (5th Street) and Niblock Lane 0 0.00 0.88 0.41 th Oregon Avenue and 10 Street 0 0.00 0.69 0.41 OR 222 (Oregon Avenue) and OR 99 (Front Street) 5 0.20 0.27 0.29 OR 222 (Coverdale Road) and I‐5 NB Ramps 4 0.16 0.27 0.29 OR 222 (Cloverdale Road) and Emerald Parkway 1 0.06 0.30 0.29 OR 222 (Cloverdale Road) and Melton Road 2 0.19 0.36 0.29 Melton Road and Emerald Parkway 3 0.35 0.70 0.41 Dale Kuni Road and Emerald Parkway 2 0.61 0.99 0.41 OR 222 (Cloverdale Road) and Dale Kuni Road 5 0.54 0.69 0.41 OR 99 (Front Street) and Mill Street 0 0.00 0.39 0.29 OR 99 (Mill Street) and Martin Road 0 0.00 0.13 0.29 All‐Way stop Controlled th Harvey Road (5 Street) and A Street 1 0.16 0.78 0.41 st Oregon Avenue and 1 Street 7 0.47 0.60 0.41 Bold/Highlighted cells indicate that crash rate is over the critical crash rate or 90th percentile crash rate a Crash rate is the number of intersection crashes per million entering vehicles b Critical crash rates developed using a 95% confidence level, grouping facilities by intersection control type. c Crash rates represent 90th percentile crash rates from a study of 5,000 intersections in Oregon

As shown in Table 7, both of the signalized intersections in Creswell have moderately low crash rates. Although these locations have experienced a relatively high frequency of crashes (more than two per year), the crash rates are low relative to the volume of traffic served in comparison to other signalized intersections throughout Oregon. More details for the signalized intersections are described below.

 OR 222 (Oregon Avenue) and OR 99 (Mill Street) is a four‐leg, signalized intersection, where Mill Street continues north/south and Oregon Avenue extends east/west. There were 16 reported collisions at this intersection, seven of which were turn type collisions caused by the driver failing to yield the right‐of‐way (4), improper turn/movement (2), and distracted by the signal (1). Seven of the crashes were rear‐end type collisions caused by drivers following too closely (6) and failing to avoid vehicle ahead (1). The final two crashes were fixed object type collisions caused by drivers performing improper turns/movements. All the crashes resulted in a minor injury or property damage only.

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 OR 222 (Cloverdale Road) and I‐5 SB Ramps is a four‐leg, signalized intersection, where Cloverdale Road is two‐way in the east‐west direction and the I‐5 SB Ramps provide access on and off the freeway. There were 12 reported collisions at this intersection, seven of which were turn type collisions caused by distractions (3), failing to yield the right‐of‐way (3), and improper turn (1). Three of the crashes were rear‐end type collisions caused by drivers following too close (2) and failing to avoid the vehicle ahead (1). The final two crashes were fixed object type collisions caused by fatigue and a sideswipe type crash that occurred while improperly changing lanes. All the crashes resulted in minor injury or property damage. Crash rates for unsignalized intersections are also fairly low in general and no critical crash rates are exceeded. However, three intersections have crash rates greater than the 90th percentile crash rate thresholds: Dale Kuni Road/Emerald Parkway, OR 222(W Cloverdale Road)/Dale Kuni Road, and W Oregon Avenue/1st Street.

 At the intersection of Dale Kuni Road and Emerald Parkway two crashes occurred within the five year period, one of which was a turn type collision while the other was an angle type collision. The crashes caused PDO and minor injuries. Both of the crashes were caused by the driver failing to yield.

 Of the five crashes that occurred at OR 222(W Cloverdale Road) and Dale Kuni Road, three were caused by turn type collisions caused by carelessness and performing an improper turn. The final two were a rear‐end type collision and a fixed object collision caused by performing an improper turn and failing to avoid an object. Two crashes caused moderate injuries, one caused minor injuries, and two were PDO.

 Seven crashes were reported at W Oregon Avenue and 1st Street over the five‐year period. Of the seven crashes, three were angle crashes caused by the driver failing to yield and passing by a stop sign or flashing red light. Two were rear‐end crashes caused by failing to yield and following too closely. Two other crashes were a sideswipe collision and an angle type collision caused by the drivers failing to yield. Three of the crashes resulted in moderate injury, two resulted in minor injury, and two resulted in PDO. Although these intersections have only experienced a handful of crashes over five years, it is important to determine if there are any recurring crash patterns that could require mitigation. No significant patterns of crashes at any of these intersections were identified. These locations should continue to be monitored in the future.

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Roadway Segment Safety Crash rates identifying the number of crashes per million vehicle miles traveled were calculated for sections of OR 222 and OR 99 through the city and compared to statewide average rates for similar highways. 18 The reported crash rates are shown in Table 9.

Most of the segments experienced crash rates below statewide averages during each of the last five years, indicating that the frequency of crashes was consistently low compared to similar highways. Segments used in crash rate calculations generally should be approximately one mile to ensure statistically appropriate crash rates are identified. For the full extent of OR 99 and OR 222 in Creswell, the highways did not exceed comparable statewide crash rates with the exception of OR 99 in 2015.

Examining the crash rates in shorter segments can be used to identify potential areas to monitor in the future. The south segment of OR 99 (OR 222 to South City Limit) does have higher crash rates in the years 2011, 2014, and 2015 when compared to average rates for Urban Collectors. The east segment of OR 222 (I‐5 to OR 99) also experienced higher crash rates when compared to similar highways, but only in 2011. The reported crash rates were lower than average the other four years.

Table 9: Highway Segment Crash Rates (2011‐2015) Highway Segment Segment Crashes per million vehicle miles traveled Length (miles) 2011 2012 2013 2014 2015 OR 222 (East City Limit to OR 99) A 1.17 2.49 0.71 1.75 1.36 2.30 OR 99 (Within Creswell City Limits) B 1.35 0.58 3.13 3.61 1.50 2.52 Statewide Average Crash Rate A ‐ 3.23 3.53 3.38 3.13 2.82 Statewide Average Crash Rate B ‐ 0.90 3.86 6.30 3.14 1.91 A Minor Arterials in Urban Cities (ODOT Crash Rate Table II: Five‐Year Comparison of State Highway Crash Rates) B Urban Collectors in Urban Cities (ODOT Crash Rate Table II: Five‐Year Comparison of State Highway Crash Rates) Bold/Highlighted indicates comparison rate is exceeded.

18 Crashes per Million Vehicle Miles provided from ODOT Crash Rate Tables 2015.

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Safety Priority Index System (SPIS) Assessment The crash analysis was supplemented by a review of ODOT Safety Priority Index System (SPIS) listings to check for any locations in the city that could be ranked among the state’s top ten percent of hazardous locations. No segments in Creswell were found to rank among the top ten percent of state highways in Oregon according to ODOT 2015 SPIS ratings (data reported between 2012 and 2014).

The SPIS is a method developed by ODOT for identifying hazardous locations on state highways, with the score based on three years of crash data, considering crash frequency, rate, and severity. ODOT bases its SPIS on 0.10‐mile segments to account for variances in how crash locations are reported. This rating provides a statewide perspective for general comparison of the overall safety of the highway based on crash information for all highway segments throughout the state.

Community‐Reported Safety Concerns Community members typically experience additional issues that are not fully captured through technical analysis. The public involvement process will be used to solicit feedback from the community to identify these issues and they will be added to the memorandum once received. Community input offers valuable insight into the perception of road safety by the roadway users.

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Summary of Existing Transportation Issues

Several existing transportation system issues were noted in this memorandum. The following is a summary of the most relevant issues to be addressed in the TSP.

Key transportation system issues for pedestrians in Creswell include:

 East‐west street connectivity is limited by I‐5, OR 99 and the railroad running north‐south through the center of the city.  Missing sidewalk segments along arterials including: OR 222 (Emerald Parkway to East UGB), OR 99 (Front Street), OR 99 (Mill Street).  Missing sidewalk segments along major and minor collectors including: S. Mill Street, Niblock Lane, N Harvey Road (incomplete near W Oregon Avenue), S 5th Street (incomplete near W Oregon Avenue), S 10th Street, the southern portion of Dale Kuni Road, the northern portion of Melton Road, the eastern portion of W A Street, and D Street.  Limited designated crossing opportunities and moderate to high stress pedestrian facilities (incomplete and non‐ADA compliant ramps) limit access to the downtown commercial zone beyond Oregon Avenue.  Uncomfortable crossings for pedestrians at the intersection of OR 99 (Front Street) at OR 222 (Oregon Avenue).  Lack of marked crosswalks located near the transit stops south of the Oregon Avenue/Cloverdale Road/OR 222 corridor and sidewalks near the transit stops are incomplete in some locations.  Limited pedestrian crossings and incomplete sidewalks on N Harvey Road limit neighborhood access to schools and the Cobalt Activity Center.  Moderate to high stress crossings along OR 222 (Oregon Avenue and Cloverdale Road) east of 1st Street.  Melton Road is the only available route to Garden Lake Park and the Airport; it is a moderate to high stress pedestrian facility.  Lack of marked crosswalks at the intersections of Melton Road and Dale Kuni Road along Emerald Parkway.  Partially incomplete sidewalks in some residential areas.  Continued maintenance of sidewalks and ongoing improvements to meet ADA requirements are needed.  Lack of currently designated shared use paths for walking and bicycling.

Key transportation system issues for bicyclists in Creswell include:

 East‐west street connectivity is limited by I‐5, OR 99 and the railroad running north‐south through the center of the city.

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 Significant portions of OR 99 and OR 222 lack appropriate bicycle facilities as bicycle travel on facilities adjacent to higher speed vehicle traffic may be uncomfortable for many people, particularly younger or less experienced bicycle riders.  Inconsistent bicycle facilities on the Oregon Avenue/Cloverdale Road/OR 222 corridor result in high stress travel segments for people on bikes.  A lack of dedicated bicycle facilities on City streets with the exception of Emerald Parkway, Dale Kuni Road, A Street, Cobalt Lane, and the northern portion of N Harvey Road.  Limited bicycle facilities connecting residential areas to schools.  Segments of N Harvey Road and S 10th Street near schools and the Cobalt Activity Center are considered high stress which may be uncomfortable to younger and less experienced bicycle riders.  Limited bicycle facilities connecting residential areas to the downtown commercial zone and transit stops.  Crossing the intersection of OR 99 (Front Street) at OR 222 (Oregon Avenue) is very uncomfortable for people riding bikes.  Melton Road is the only available route to Garden Lake Park and the Airport; it is a moderate to high stress bicycle route.  There are no designated bike routes or marked shared routes in Creswell.

Key transportation system issues for transit users in Creswell include:

 Bicycle and pedestrian access to transit stops is limited.  Fixed route transit service is limited to the four stops located in the central area of the city. There are no stops located on the east side of the city.  Most stops do not include amenities such as shelters, benches, or bike parking.

Key transportation system issues for drivers in Creswell include:

 East‐west street connectivity is limited by I‐5, OR 99 and the railroad running north‐south through the center of the city.  Residents have complained about congestion at the OR 99/OR 222 crossing or “jog” between Front Street and Mill Street at the railroad crossing. Although the OR 99 intersections meet minimum mobility targets under existing conditions, significant queuing occurs during peak demand periods and during rail crossing events.  Most segments of OR 99 and OR 222 do not meet current ODOT access spacing standards as a result of frequent roadway intersections or driveways located along the highways as they pass through residential and commercial areas.  Crash rates at Dale Kuni Road/Emerald Parkway, Dale Kuni Road/OR 222(W Cloverdale Road), and W Oregon Avenue/1st Street intersections should be monitored.

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 There have been several rear‐end crashes at the intersections of OR 222/OR 99 (Front Street) and OR 222/OR 99 (Mill Street).  There have been several turn related crashes at the intersection of OR 222/I‐5 Southbound Ramp Terminal.

Key transportation system issues for air travel in Creswell include:

 Improving multi‐modal connections to the Airport.  Incorporating recommendations from the Airport Master Plan.

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