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West Dowling Road Connection Project Revised Environmental Assessment & Programmatic Section 4(f)/6(f) Evaluation STP-0532(5)/55012

Prepared for: Federal Highway Administration Alaska Division

On Behalf of the Sponsor Department of Transportation and Public Facilities Central Region

Prepared by: HDR Alaska, Inc. 2525 C Street, Suite 305 Anchorage, Alaska 99503-2632

November 2007

Table of Contents

1.0 INTRODUCTION Purpose and Need 1-1 NEPA Process 1-4 Permits and Authorizations 1-5 2.0 DESCRIPTION OF THE PROPOSED ACTION AND ALTERNATIVES No Action Alternative 2-1 Proposed Action 2-2 Raspberry Dowling 2-56 S Curve 2-78 Frontage Road 2-910 Rovenna Frontage 2-1112 3.0 AFFECTED ENVIRONMENT AND CONSEQUENCES Physical Environment 3.1 Air Quality 3.1-1 3.2 Water Bodies 3.2-1 3.3 Floodplains 3.3-1 3.4 Water Quality 3.4-1 3.5 Coastal Zone 3.5-1 Biotic Environment 3.6 Vegetation 3.6-1 3.7 Wetlands 3.7-1 3.8 Fish and Essential Fish Habitat 3.8-1 3.9 Wildlife 3.9-1 3.10 Threatened & Endangered Species 3.10-1 Human Environment 3.11 Land Use and Zoning 3.11-1 3.12 Land Ownership 3.12-1 3.13 Socio-Economics 3.13-1 3.14 Transportation Systems 3.14-1 3.15 Noise 3.15-1 3.16 Archeology and Historic Preservation 3.16-1 3.17 Recreational Resources 3.17-1 3.18 Utilities 3.18-1 3.19 Contaminated Sites 3.19-1 3.20 Visual 3.20-1 3.21 Indirect and Cumulative Effects 3.21-1 3.22 Irretrievable and Irreversible Commitment of Resources 3.22-1 3.23 Local Short-Term Uses verses Long-Term Productivity 3.23-1 4.0 CONSULTATION AND COORDINATION 4-1 5.0 LIST OF PREPARERS 5-1 6.0 REFERENCES 6-1 PROGRAMMATIC SECTION 4(F)/6(F) EVALUATION List of Tables

Table 3.1 – Floodplain Impacts 3.3-4 Table 3.2 – Wetlands 3.7-5 Table 3.3 – Wetland Impacts 3.7-5 Table 3.4 – Zoning 3.11-3 Table 3.5 – Racial Composition 3.13-3 Table 3.6 – Minority Status 3.13-3 Table 3.7 – Median Household Income (1999 dollars) 3.13-5 Table 3.8 – 2004 DHSS Poverty Guidelines for Alaska 3.13-5 Table 3.9 – Summary of Existing Ambient Noise Measurement 3.15-1 Results Table 3.10 – Noise Abatement Criteria 3.15-4 Table 3.11 – AM Peak Hour Noise Analysis Results 3.15-5 Table 3.12 – Contaminated Sites 3.19-1 Table 3.13 – Summary of Containments in Tina Lake 3.19-4 Table 4.1 – Summary of Issues and Responses 4-1 Table 4.2 – Summary of Comments Received during Comment Period and Responses 4-3

List of Figures

Figure 1.1 – Study Area 1-2 Figure 2.1 – Proposed Action 2-3 Figure 2.2 – Typical Cross Section 2-2 Figure 2.3 – Campbell Creek Bridge 2-4 Figure 2.4 – Bridge Crossing Arctic Boulevard and Alaska Railroad Tracks 2-45 Figure 2.5 – Raspberry Dowling Concept 2-67 Figure 2.6 – S Curve Concept 2-89 Figure 2.7 – Frontage Road Concept 2-1011 Figure 2.8 – Rovenna Frontage Concept 2-1213 Figure 3.1 – Air Quality Maintenance Boundary 3.1-2 Figure 3.2 – Waterbodies 3.2-1 Figure 3.3 – Campbell Creek 3.2-1 Figure 3.4 – Tina Lake Storm Drain Outlet 3.2-2 Figure 3.5 – The approximate new Tina Lake Boundary 3.2-3 Figure 3.6 – Floodplains 3.3-2 Figure 3.7 – Campbell Creek Floodplain Impacts 3.3-4 Figure 3.8 – Tina Lake Floodplain Impacts 3.3-4 Figure 3.9 – Approximate Location of Proposed Drainage Swales 3.4-3 Figure 3.109 – Alaska Coastal Zone Boundary 3.5-1 Figure 3.1110 – Vegetation 3.6-2 Figure 3.1211 – Area of Re-vegetation 3.6-3 Figure 3.1312 – Components of a Wetland 3.7-2 Figure 3.1413 – Wetlands 3.7-3 Figure 3.1514 – Impacts to Wetlands near Tina Lake 3.7-6 Figure 3.1615 – Avoidance Alternative 3.7-9 Figure 3.1716 – Original Alignment 3.7-10 Figure 3.1817 – Minimization of Wetland Impacts in Tina Lake 3.7-10 Figure 3.1918 – Further minimization of Wetland Impacts 3.7-11 Figure 3.2019 – Percent of Land Use in the Study Area 3.11-1 Figure 3.2120 – Land Use 3.11-2 Figure 3.2221 – Anchorage 2020 Land Use 3.11-3 Figure 3.2322 – Zoning 3.11-4 Figure 3.2423 – Land Ownership 3.12-2 Figure 3.2524 – Anticipated Right of Way Acquisitions 3.12-3 Figure 3.2625 – Population by Census Block 3.13-2 Figure 3.2726 – Percent Minority 3.13-4 Figure 3.2827 – Median Household Income (1999 Dollars) 3.13-6 Figure 3.2928 – Median Household Income and the Poverty Level 3.13-7 Figure 3.3029 – Taku/Campbell Community Council 3.13-7 Figure 3.3130 – Impact of the Proposed Action on Census Block 2011, Block Group 2, Census Tract 25.02 3.13-9 Figure 3.3231 –The impact on Census Block 1006, Block Group 1, Census Tract 25.01 3.13-9 Figure 3.3332 – Road Classification from the Official Streets and Highways Plan 3.14-2 Figure 3.3433 – 2004 Average Daily Traffic Volumes 3.14-4 Figure 3.3534 – 2025 No Action Forecasted Average Daily Traffic Volume 3.14-5 Figure 3.3635 – 2025 No Action Forecasted V/C Ratio 3.14-6 Figure 3.3736 – 2025 Proposed Action Forecasted Average Daily Traffic Volume 3.14-7 Figure 3.3837 – 2025 Proposed Action Forecasted V/C Ratio 3.14-9 Figure 3.3938 – Difference in ADT 3.14-10 Figure 3.4039 – Noise Monitoring Sites 3.15-1 Figure 3.4140 – Noise Sensitive Receivers 3.15-3 Figure 3.4241 – Proposed Noise Wall Locations 3.15-8 Figure 3.4342 – Existing and Future Noise Levels at Chad Street 3.15-9 Figure 3.4443 – Recreational Resources 3.17-2 Figure 3.4544 – Cross Section of the Campbell Creek Trail Crossing 3.17-3 Figure 3.4645 – Impacts to Campbell Creek Greenbelt 3.17-4 Figure 3.4746 – Proposed Section 6(f) Mitigation 3.17-87 Figure 3.4847 – Chugach Electric 3.18-1 Figure 3.4948 – AWWU Sewer Pipes 3.18-2 Figure 3.5049 – AWWU Water Pipes 3.18-2 Figure 3.5150 – ENSTAR 3.18-3 Figure 3.5251 – Potentially Contaminated Sites 3.19-2 Figure 3.5352 – UST and LUST Sites 3.19-3 Figure 3.5453 – Approximate Location of Photos 3.20-1 Figure 3.5554 – View of Campbell Creek Crossing of Dowling Road from South Side of Trail 3.20-2 Figure 3.5655 – View of Campbell Creek Trail and Bridge Looking West on Dowling Road 3.20-2 Figure 3.5756 – View of the Alaska Railroad Crossing on Arctic Boulevard 3.20-3 Figure 3.5857 – View of Campbell Creek Bridge Looking East 3.20-3 Figure 3.5958 – Northern Edge of Tina Lake 3.20-4 Figure 3.6059 – Tina Lake looking South East 3.20-4 Figure 3.6160 – Existing Terminus of Raspberry Road 3.20-5 Figure 3.6261 – Cumulative Impact Boundary 3.21-2 Figure 3.6362 – Tina Lake in 1950 3.21-2 Figure 3.6463 – Tina Lake in 1975 3.21-3

Appendices Plan Set A Scoping Summary Report B Air Quality C Hydrology, Hydraulics, and Drainage D Wetlands E Essential Fish Assessment and Bird Survey F Conceptual Stage Relocation Report G Noise Study H Archeology and Historic Preservation I Contaminated Sites J Draft Permits K Environmental Assessment Review and Other Coordination L ACRONYMS

ACMP Alaska Coastal Management Program ACS Alaska Communications Systems ADA Americans with Disabilities Act ADEC Alaska Department of Environmental Conservation ADF&G Alaska Department of Fish and Game ADNR Alaska Department of Natural Resources ADT average daily traffic AFD Anchorage Fire Department AHRS Alaska Heritage Resources Survey AMATS Anchorage Metropolitan Area Transportation Solutions ARRC Alaska Railroad Corporation AS Alaska Statutes AWWU Anchorage Water and Wastewater Utility BMP Best Management Practice CEA Chugach Electric Association CFR Code of Federal Regulations CMP Coastal Management Plan CO Carbon Monoxide CWA Clean Water Act dB[A] decibels using the A-weighted scale DOT&PF Alaska Department of Transportation and Public Facilities DRO diesel range organic EA Environmental Assessment EFH Essential Fish Habitat EIS Environmental Impact Statement EPA Environmental Protection Agency FEMA Federal Emergency Management Agency ESCP Erosion and Sediment Control Plan FHWA Federal Highway Administration FONSI Finding of No Significant Impact GCI General Communications Inc. GIS geographic information system ISA Initial Site Assessment kV kilovolt

Leq(h) sound level occurring over a 1-hour period LRTP long-range transportation plan LUST Leaking Underground Storage Tank LWCF Land and Water Conservation Fund MOA Municipality of Anchorage MSFCMA Magnuson-Stevens Fishery Conservation and Management Act NAAQS National Ambient Air Quality Standards NAC Noise Abatement Criteria NEPA National Environmental Policy Act NHPA National Historic Preservation Act

NO2 Nitrogen Dioxide NOAA Fisheries National Oceanic and Atmospheric Administration, NPDES National Pollutant Discharge Elimination System OPMP Office of Project Management and Permitting OS&HP Official Streets and Highways Plan Pb Lead PM Particulate Matter ROW Right-of-Way RRO residual range organic SHPO State Historic Preservation Office SIP state implementation plan

SO2 Sulfur Dioxide SWPPP Storm Water Pollution Prevention Plan TMDL Total Maximum Daily Load TNM Traffic Noise Model USACE US Army Corps of Engineers USC U. S. Code USCG U.S. Coast Guard USDOT U.S. Department of Transportation USFWS US Fish and Wildlife Service USGS United States Geologic Survey UST Underground Storage Tank V volt VHT vehicle hours traveled VMT vehicle miles traveled

1.0 Introduction

The Alaska Department of Transportation and Public Facilities (DOT&PF) is proposing to extend and reconstruct Dowling Road from Old Seward Highway to Minnesota Drive using federal funding through the Alaska Division Office of the Federal Highway Administration (FHWA). This project would improve roadway connectivity and accessibility in the West Dowling Road area of the Municipality of Anchorage (MOA). Figure 1.1 shows the project area. The project area is bounded by Old Seward Highway to Minnesota Drive between Dowling Road and 68th Avenue. Currently, no continuous east-west arterial roads connect New Seward Highway and Minnesota Drive between Tudor Road and Dimond Boulevard. This arterial connection has been planned for many years and is one of the highest priority projects in the MOA, according to Anchorage Metropolitan Area Transportation Solutions (AMATS).

The purpose of the West Dowling Road Connection Project Environmental Assessment (EA) is to present and analyze the environmental consequences of the Proposed Action and a No Action Alternative in accordance with the Council on Environmental Quality regulations implementing the National Environmental Policy Act (NEPA).

Purpose and Need

The purpose of the West Dowling Road Connection Project is to provide a continuous east-west arterial roadway connection between International Airport Road and Dimond Boulevard that connects Old Seward Highway to Minnesota Drive. DOT&PF, in cooperation with AMATS, has identified the need to construct roadway connectivity and accessibility improvements in the West Dowling Road Connection Project area. The arterial network in the project area is poor. Of the roads that are classified as arterials, none connect continuously east-west across the project area. The road network that does exist (minor arterials and collectors that feed traffic to the arterials) is discontinuous. The

West Dowling Road Connection Project – November 2007 October 2006 1-1 Introduction West Dowling Road Connection Project

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Study Area Stream Local Street Figure 1.1 Railroad Lake Arterial Study Area Existing ROW Park Freeway Legend

1-2 West Dowling Road Connection Project – November 2007 October 2006 Introduction lack of continuous roadway limits accessibility and mobility within and through the project area.

In urban areas, the roadway network should contain arterials every 0.5 to 1 mile (FHWA 1989). The nearest east-west arterials are International Airport Road and Dimond Boulevard, which are approximately 2 miles apart. To improve the arterial network, one to three more arterials are needed between these two roads.

Accessibility and mobility are further hampered by barriers to travel. East-west barriers to traffic in the project area are Campbell Creek, the Alaska Railroad tracks, and the limited-access freeways (New Seward Highway and Minnesota Drive). The poor accessibility in this area is a primary concern of emergency service providers. Poor accessibility also restricts the ability to provide transit service. Furthermore, the incomplete road network results in circuitous trip patterns. The lack of connectivity hampers neighborhood access to residential areas and truck access to industrial areas, which causes travel time and distance to increase for travelers in the study area.

The identified needs of the project include the following: • Provide additional east-west connectivity to north-south arterials such as Old Seward Highway, C Street, Arctic Boulevard, and Minnesota Drive • Reduce congestion on surrounding arterials, including Dimond Boulevard, Tudor Road, and C Street • Distribute north-south trips to and from residential areas such as the Taku/Campbell community and employment areas in Midtown and the University-Medical District • Improve accessibility to neighborhoods like Taku/Campbell and Sand Lake, the industrial reserve identified in the Anchorage 2020 comprehensive plan (MOA 2001), and other land uses in the project area • Provide improved connectivity and mobility for trips traveling through the project area

West Dowling Road Connection Project – November 2007 October 2006 1-3 Introduction • Improve convenience, mobility, and efficiency for freight and emergency service providers

NEPA Process

In accordance with NEPA, FHWA must determine whether the proposed project would have significant impacts on area resources. NEPA is a nationwide mandate for the protection of the environment and is applied to all federal actions. The purpose of NEPA is to provide public disclosure of the environmental impacts associated The West Dowling Project with a proposed federal action. The NEPA process Environmental Process enables public officials to make decisions that are based on an objective understanding of the Scoping environmental consequences and take actions that protect, restore, and enhance the environment. The NEPA process also provides the opportunity for Technical Memos public comment.

Environmental Assessment Scoping is the first step in the NEPA process. The A document prepared in process is designed to identify alternatives to the compliance with NEPA Proposed Action and environmental concerns or that discusses the purpose issues that should be addressed in the EA. Agency and need for an action, and public scoping for this project was conducted describes alternatives to between 2002 and 2005. More details on the the action, and provides scoping process and other consultation and enough information and coordination activities are provided in Section 4 analysis of impacts to and in the Scoping Summary Report (HDR 2006). determine whether to prepare an EIS or a FONSI. Scoping identified the following key issues, which are addressed in this EA:

Finding of No Significant • Tina Lake and associated wetlands Impact • Campbell Creek bridge A FONSI presents the • reasons why an action will Right-of-way (ROW) impacts not have a significant • Contaminated sites effect on the environment • Impacts to recreation resources and does not require an EIS. Based on project This EA also evaluates the potential impacts of feedback and analysis project alternatives on the physical, biological, and done to date, a FONSI is human resources in the area. If significant impacts anticipated for this project. are identified in this EA, a more detailed Environmental Impact Statement (EIS) will be required. If FHWA decides that impacts will not be significant, it would prepare and sign a Finding of

1-4 West Dowling Road Connection Project – November 2007 October 2006 Introduction No Significant Impact (FONSI). This finding will allow DOT&PF to proceed with the Proposed Action.

In addition to NEPA, other laws and regulations require compliance during project development. Although each law and regulation has different documentation and consultation requirements, this EA serves as the coordinating document to record compliance with other applicable laws and regulations.

To comply with other laws, DOT&PF must complete the following consultations: • National Historic Preservation Act (NHPA) Section 106 Consultation – administered by Advisory Council on Historic Preservation with assistance from the State Historic Preservation Office (SHPO) • Alaska Historic Preservation Act – Consultation and determination, administered by the SHPO in conjunction with NHPA Section 106 • Section 4(f) – administered by FHWA • Land and Water Conservation Fund (LWCF)[Section 6(f)] - Consultation administered by the National Park Service • Endangered Species Act Section 7 Consultation – administered by the U.S. Fish and Wildlife Service (USFWS) and National Oceanic and Atmospheric Administration, National Marine Fisheries Service (NOAA Fisheries) • Essential Fish Habitat Assessment Consultation – administered by NOAA Fisheries under the Magnuson Stevens Fishery and Conservation and Management Act (MSFCMA)

Permits and Authorizations

Several federal, state, and local permits and clearances are required before project construction. The following is a list of permits that may need to be obtained or complied with.

West Dowling Road Connection Project – November 2007 October 2006 1-5 Introduction • National Pollutant Discharge Elimination System (NPDES) General Permit for Storm Water Discharges from Construction Activities – administered by the U.S. Environmental Protection Agency (EPA) under the Clean Water Act (CWA) • CWA Section 401 Certificate of Reasonable Assurance – administered by the Alaska Department of Environmental Conservation (ADEC) • General Wastewater Disposal Permit – administered by ADEC • CWA Section 404 Permit – administered by the U.S. Army Corps of Engineers (USACE), Alaska District • Coastal Zone Management Act/Alaska Coastal Management Program Consistency Review and Determination – administered by the Alaska Department of Natural Resources (ADNR), Office of Project Management and Permitting (OPMP) • Temporary Water Use Permit (for water withdrawals during construction) – administered by ADNR, Division of Mining, Land, and Water • Floodplain Hazard Permit – administered by MOA • Temporary Construction Permit – administered by MOA Parks and Recreation • Determination of No Hazard to Air Navigation – administered by Federal Aviation Administration

1-6 West Dowling Road Connection Project – November 2007 October 2006 Introduction 2.0 Alternatives

Description of the Proposed Action and Alternatives

Two alternatives are evaluated in this EA: • A No Action Alternative, which makes no transportation improvements in the study area • A Proposed Action, which upgrades and extends Dowling Road between Old Seward Highway and Minnesota Drive

Four concepts that were considered but eliminated from further study are also discussed.

No Action Alternative

Evaluation of a No Action Alternative is required under NEPA regulations as a baseline for comparing the effects associated with the Proposed Action. The No Action Alternative uses the existing roadway, meaning only routine activities such as road maintenance and repair would occur during the next 20 years. This alternative does not include improvements that would substantially increase roadway capacity or reduce congestion in the study area. The No Action Alternative does assume the other projects in the Anchorage Bowl 2025 Long-Range Transportation Plan (LRTP) (DOT&PF, MOA, and AMATS 2005) are built. The only project planned for the study area is the 68th Avenue extension project. The MOA intends to construct a two-lane minor arterial (with a center turn lane) along 68th Avenue between Minnesota Drive and Arctic Boulevard. Construction is scheduled to begin in summer 2007.

Because the No Action Alternative does not provide additional east-west connectivity to north-south arterials, reduce congestion on surrounding arterials, distribute north-south trips to and from residential and employment areas, or improve accessibility to neighborhoods, industrial reserves (lands zoned for industrial uses that support important transportation facilities such as the Ted Stevens Anchorage International Airport), and other land

West Dowling Road Connection Project – November 2007 November 2006 2-1 Alternatives uses within the study area, it does not meet the purpose and need for the proposed project.

Proposed Action

The Proposed Action (also known as the Rovenna concept) is to construct a five-lane arterial road (four travel lanes and a median turn lane) connecting Old Seward Highway to Minnesota Drive (see Figure 2.1). The Proposed Action would include a 6-foot sidewalk and a 120-foot separated multi-use pathway along its entire length. Figure 2.2 shows a cross section of the Proposed Action. The Proposed Action would upgrade the existing two-lane Dowling Road between Old Seward Highway and B Street. Additional ROW would be necessary to accommodate the additional lanes. The majority of the ROW would be acquired from the north side of the roadway. The intersection of Dowling Road and Old Seward Highway would be reconfigured to accommodate the additional lanes. The intersection at Potter Drive would be reconfigured into a T intersection. The intersections at A and B streets also would be reconfigured.

Sidewalk Pathway

Lane Lane Median & Turn Lane Lane Lane

Figure 2.2 Typical Cross-Section Drawing

The existing bridge over Campbell Creek would be replaced by a structure that would be approximately 100 feet long, 92 feet wide, and 1012 feet above the creek banks (see Figure 2.3). As a result of agency and public consultation, the Campbell Creek Trail would be redesigned to route the trail under the Campbell Creek bridge. See Section 3.17, Recreation Resources, for more information on the trail.

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Center Line Study Area Lake Figure 2.1 Bridge Alaska Railroad Park Proposed Action Trail Connections Stream Legend

West Dowling Road Connection Project – November 2007 November 2006 2-3 Alternatives 100'

DOWLING ROAD CAMPBELL MSE RETAINING WALL BRIDGE CREEK TRAIL 12' 10’ CLEARANCE

TRENCH FILL CAMPBELL REVETMENT CREEK COBBLES 89'

Figure 2.3 Campbell Creek Bridge Between B Street and Raspberry Road, a new five- lane road would be constructed. Additional ROW would be acquired on both sides of the Proposed Action, between B Street and Arctic Boulevard. A new intersection would be created at Dowling Road and C Street. This intersection would have right- turn and dual left-turn lanes in every direction. The existing trails paralleling C Street would be modified so that trail users would cross at the intersection.

From Arctic Boulevard to Raspberry Road, most of the Proposed Action uses existing ROW. A new at- grade intersection would be created at C Street. The proposed project would connect West Dowling Road to Arctic Boulevard through a two-lane collector road.

A bridge would cross Arctic Boulevard and the Alaska Railroad mainline. This structure would be approximately 500 feet long and 100 feet wide, with a clearance height of 23 22 feet over the Alaska Railroad tracks. The bridge is shown in Figure 2.4.

The proposed project would connect Dowling Road to 68th Avenue by creating a T intersection. The intersections of 68th Avenue with Rovenna, Cheryl, and Chad streets, would be reconfigured and have no change in access.

The Proposed Action would include a noise barrier along 68th Avenue. Specific information about the noise wall can be found in Section 3.15, Noise.

2-4 West Dowling Road Connection Project – November 2007 November 2006 Alternatives Bridge Bridge Bridge Dowling Road Pier Bridge Retaining Retaining Railroad Wall Wall Crossing

Arctic Access Road Island

Bridge Bridge Dowling Road Pier Bridge Retaining Railroad Bridge Wall Crossing Retaining Wall Arctic Access Road Island X

Figure 2.4 Bridge Crossing Arctic Boulevard and the Alaska Railroad Tracks To the extent practicable, drainage would be improved throughout the project area, especially east of C Street, an area that has experienced localized flooding. Drainage around Tina Lake would be directed into Tina Lake after passing though drainage swales.

The Proposed Action would cost approximately $104.6 $77.5 million. Construction would cost approximately $50.8 million. Utility relocation is estimated at $8.2 million, and ROW acquisition is estimated at $18.5 $45.6 million.

Concepts Considered but Eliminated from Further Study

Four other alignment concepts were considered but eliminated from further study for several reasons. These concepts are as follows: • Raspberry Dowling • S Curve • Frontage Road • Rovenna Frontage

Each concept is discussed in more detail below. For more information on each alternative, refer to the Alternatives Analysis Technical Memorandum.

West Dowling Road Connection Project – November 2007 November 2006 2-5 Alternatives Raspberry Dowling

This concept would involve extending Dowling Road from its existing terminus at Potter Drive to Arctic Boulevard. Raspberry Road would be extended east from Minnesota Drive to C Street. North-south traffic movements would use Arctic Boulevard and C Street. Figure 2.5 illustrates this concept.

The Raspberry Dowling concept was eliminated for the following reasons: • Inability to meet the purpose and need of the project. This alternative would not provide continuous east-west connectivity amongst north-south collectors and arterials; it would continue a disjointed arterial network. • Failure to reduce congestion and poor levels of service on adjacent and parallel arterials. This alternative would overload C Street with traffic and exacerbate the delay and safety concerns at the existing at-grade crossing of the Alaska Railroad tracks at C Street. • Does not improve accessibility to industrial land uses and the industrial reserve. This alternative would require most of the industrial reserve area to use circuitous routes on existing north-south roads (Arctic Boulevard and C Street) to get to the highway network (Minnesota Drive and New Seward Highway). The Alaska Railroad tracks running diagonally through the study area would remain a barrier to the accessibility of the area.

2-6 West Dowling Road Connection Project – November 2007 November 2006 Alternatives West Dowling Road Connection Project

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Raspberry Dowling Stream Figure 2.5 Concept Lake Raspberry Dowling Concept Alaska Railroad Park Legend

West Dowling Road Connection Project – November 2007 November 2006 2-7 Alternatives S Curve

The S Curve concept would connect Raspberry Road to Dowling Road with a reverse curve (see Figure 2.6). The curve would link the intersection of Dowling Road and C Street to Minnesota Drive via Raspberry Road.

The S Curve concept was not recommended for further study for the following reasons: • Conflict with the Alaska Railroad mainline and spurs. In addition to crossing the Alaska Railroad mainline, this concept would require crossing two railroad spurs. Closely spaced at- grade crossings with oblique angles would be created, raising safety concerns and causing traffic delays when the crossings would be occupied. This situation would increase rail conflicts and would not meet the purpose and need. Because having three close grade- separated crossings would be problematic, one long structure crossing the mainline and both spurs would be required. The bridge would restrict local access from a considerable portion of Dowling Road from adjacent industrial areas, thereby limiting the convenience and efficiency of freight mobility provided by the improvement. The estimated length of this structure would be 2,500 feet. . The cost for such a structure would be prohibitive, at an estimated $80 million. • Substantial ROW impacts on developed property. This alternative would require buying a large part of the industrial reserve area. Land would need to be acquired from approximately 25 parcels, and the acquisitions would require multiple business relocations. Business relocation would be difficult because many of these businesses require access to a railroad spur, for which available relocation options are limited. Purchasing these viable businesses would have substantial land use and business impacts. Under this alternative, the project would purchase many industrial properties for which the proposed project is trying to improve access.

2-8 West Dowling Road Connection Project – November 2007 November 2006 Alternatives West Dowling Road Connection Project

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S Curve Stream Figure 2.6 Concept Lake S Curve Concept Alaska Railroad Park Legend

West Dowling Road Connection Project – November 2007 November 2006 2-9 Alternatives • Lack of distinction from the Proposed Action. The S Curve concept is an alignment variation that has considerably higher costs (more ROW and longer bridge) and much greater impacts to land use and businesses.

Frontage Road

The Frontage Road concept would extend Dowling Road to a T intersection with a new frontage road that parallels Minnesota Drive (see Figure 2.7). This frontage road, a four-lane, two-way road, would connect to Raspberry Road and International Airport Road.

This concept was not recommended for the following reasons: • Lack of continuous east-west connectivity amongst north-south collectors and arterials. This alternative continues the disjointed arterial network. • Additional wetland impacts. This alternative would affect wetlands adjacent to Blueberry Lake. • Bisects Tina Lake • Intersection geometry problems at International Airport Road and Raspberry Road created by the two-way frontage roads. • Traffic volumes at the intersection of the frontage road and International Airport Road are too high for a signalized intersection. A grade-separated intersection would be required, resulting in substantially increased project costs. • Crossing of the rail spur used for gravel operations. This alternative could result in operational issues because of train frequency.

2-10 West Dowling Road Connection Project – November 2007 November 2006 Alternatives West Dowling Road Connection Project

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Frontage Road Stream Figure 2.7 Concept Lake Frontage Road Concept Alaska Railroad Park Legend

West Dowling Road Connection Project – November 2007 November 2006 2-11 Alternatives Rovenna Frontage

The Rovenna Frontage concept was based on the Proposed Action, but would include upgrading the existing local roads that connect Dowling Road to International Airport Road (see Figure 2.8). This concept was not carried forward for the following reasons: • Intersection geometry problems created at International Airport Road by the two-way frontage road. • Small volume of vehicles per day using the frontage road, according to preliminary traffic modeling. This demand could be served with Arctic Boulevard or C Street. • Provision of local street connections instead of major arterial connections. Decisions about the local street network should be made at the municipal level, not the state level, making the alternative unsuitable as a DOT&PF project. • Lack of distinction from the Proposed Action. This alternative would be an alignment variation.

2-12 West Dowling Road Connection Project – November 2007 November 2006 Alternatives West Dowling Road Connection Project

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Rovenna Frontage Stream Figure 2.8 Concept Lake Rovenna Frontage Concept Alaska Railroad Park Legend

West Dowling Road Connection Project – November 2007 November 2006 2-13 Alternatives 3.1 Air Quality

Existing Conditions

The EPA monitors air quality using six pollutants: carbon monoxide (CO), particulate matter (PM), lead (Pb), sulfur dioxide (SO2 ), ozone (O3 ), and nitrogen dioxide (NO2 ). EPA has established What is the Clean Air Act? National Ambient Air Quality Standards (NAAQS) The Clean Air Act of 1970 for each of the six identified pollutants. The (42 U.S. Code 7401 et seq.) standards are identified as “primary” for protection was enacted to protect of public health and “secondary” for protection of and enhance air quality other aspects of public welfare. The NAAQS and to assist state and represent maximum concentrations above which local governments with air adverse effects on human health may occur. Areas pollution prevention where target pollutants persistently exceed programs. respective NAAQS are often designated non- Under the Clean Air Act attainment areas. Typically, EPA assigns non- Amendments of 1990, attainment status to an area after air quality USDOT cannot fund, standards have been exceeded for several authorize, or approve consecutive years. federal actions to support programs or projects that The majority of the Anchorage Bowl was declared a are not found to conform non-attainment area for CO when the 1990 Clean to the Clean Air Act Air Act Amendments were implemented. Since requirements. then, the CO levels in the Anchorage Bowl have been decreasing, and levels have not exceeded the NAAQS since 1996 (MOA 2004). Anchorage is now What is a non-attainment considered in compliance with federal CO area? standards and is considered a CO maintenance A non-attainment area is a geographic area that area. The Air Quality Maintenance Area boundary has not consistently met is shown in Figure 3.1. The project area is located the clean air levels set by within this boundary. EPA in the NAAQS.

As a maintenance area, Anchorage must have an approved state implementation plan (SIP) to ensure the area does not revert to non-attainment status. The SIP requires the development of a regional CO emissions budget. In 2006, the estimated motor vehicle emissions level was below the allowable emissions budget.

West Dowling Road Connection Project – November 2007 November 2006 3.1-1 Air Quality

Environmental Consequences

Under the No Action Alternative, the CO emissions for the Anchorage Bowl will be higher than under

Anchorage the Proposed Action because of the expected increases in vehicle miles traveled (VMT) and vehicle hours traveled (VHT). Increases in these factors are associated with declines in air quality. Because federal emission standards for vehicles are Air Quality I Maintenance expected to continue.IT, it is likely that the Miles Boundary 02.55 projected motor vehicle emissions will be less than

Figure 3.1 Air Quality the existing emissions budget for Anchorage. Maintenance Boundary Air quality modeling shows that the Proposed Action would not exacerbate the severity of What is a maintenance existing or create any new violations of the area? NAAQS. For more information on air quality A "maintenance area" is modeling, please refer to Appendix C. the geographic region previously designated a The Proposed Action is part of the Transportation non-attainment area, and Improvement Program, which conforms with the subsequently State Implementation Plan for Air Quality. redesignated to attainment. Designating an area as "maintenance" Construction is a formal rulemaking process, and EPA takes Some short-term deterioration of air quality may be this action only after experienced during construction because of monitoring data increased dust, emissions from construction demonstrates the air equipment, the operation of portable asphalt batch quality standards are plant operations, and the slower traffic speeds being met and a associated with a construction zone. This change in maintenance plan has been developed under air quality would be a localized condition that Section 175A of the Clean would be discontinued when the project was Air Act. completed. Dust and emissions from construction activities would be controlled in accordance with DOT&PF specifications.

Mitigation and Authorizations

What is a best Contractors would follow best management management practice? practices (BMPs) to reduce dust emissions and A BMP is a policy, unnecessary exhaust emissions from construction practice, procedure, or structure implemented to vehicles. BMPs would include the following: mitigate the adverse • Airborne particles would be controlled as environmental effects necessary by the application of water or other resulting from development.

3.1-2 West Dowling Road Connection Project – November 2007 November 2006 Air Quality controlled materials for dust suppression in accordance with established BMPs.

West Dowling Road Connection Project – November 2007 November 2006 3.1-3 Air Quality 3.2 Water Bodies

Existing Conditions

There are two water bodies in the study area: Campbell Creek and Tina Lake (see Figure 3.2). Both water bodies are considered navigable by ADNR but not by the U.S. Coast Guard (USCG) or the USACE (Atkinson 2004, Helfinstine 2005, Plumb-Mentjes 2007).

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Campbell Creek

Campbell Creek drains much of the front range of the Chugach Mountains immediately east of North Fork Campbell Creek s Campbell n Anchorage, from Flattop Mountain on the south to i Creek a Tanaina Peak on the north (See Figure 3.3). The t n

u basin ranges from 5,000-foot peaks to sea level. o Anchorage M The upper basin of Campbell Creek, which is h mountainous and undeveloped, encompasses the c a

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The lower basin of Campbell Creek, downstream of C I the confluence of the North Fork and South Fork, Miles 02.55 is primarily urbanized lowlands. The Hydrology and Hydraulics Study for Campbell Creek is attached in Figure 3.3 Campbell Creek Appendix D.

West Dowling Road Connection Project – November 2007 November 2006 3.2-1 Water Bodies The flow regime of Campbell Creek has been described by the U.S. Geologic Survey (USGS) as being divided into three open-water flow regimes. In May, June, and early July, the predominant source of stream flow is the melting of the winter snow pack in the upper mountainous part of the basin. The snowmelt contribution declines, leading to lower base flows, in late July and early August. Rainfall typical of this period results in peaks from storm runoff superimposed on the lower base flows. Declining temperatures and freeze-up in the upper basin leads to a further reduction in base flow, but the largest rainstorms and corresponding highest peak flows of the year commonly occur during late August until the end of September.

An anadromous fish stream, Campbell Creek is discussed in Section 3.8, Fish and Essential Fish Habitat.

Tina Lake

Tina Lake is a small (approximately 3.2-acre) Water Wetland natural pond. It is a special aquatic site

Storm Drain regulated under Section 404 of the Clean Water Outlet Act. Tina Lake is shallow; most of the lake is 18 inches or less in depth. The lake and adjacent Tin a La wetlands are surrounded by industrial land. One k e side of Tina Lake appears to have been recently filled, and other minor incremental filling has occurred through the years. The north west side of I Feet 0 250 500 these wetlands has recently been used as a snow dump. A rough estimate of the drainage basin of Figure 3.4 Approximate the lake is 25 acres. Inflows to the lake were found Location of the Tina Lake at two locations described below: Storm Drain Outlet

• At the west side, a ditch drains toward the wetlands. • At the southwest corner, a 2-foot-diameter storm drain discharges water from the industrial properties to the west. There are no MOA records for this storm drain.

The outlet from Tina Lake and the adjacent wetlands is an 18-inch storm drain outlet with a short riser or standpipe (see Figure 3.4). This storm drain is located at the northwest corner of Tina

3.2-2 West Dowling Road Connection Project – November 2007 November 2006 Water Bodies Lake. Documentation of the standpipe has not been found, but research and field investigation indicate the standpipe was installed to address a local flooding problem by controlling the maximum water level in Tina Lake.

Although as-built information does not show the standpipe, field studies found that this storm drain runs northwest to connect to a storm drain that is located in the West 59th Avenue ROW. Water in this 18-inch storm drain flows west under 59th Avenue (Quadra Engineering 1985), then south in a 30-inch storm drain under Arctic Boulevard (Price Engineering 1980). From Arctic Boulevard, the storm drain continues south on Arctic Boulevard until it crosses under West Minnesota Drive and enters a sediment pond, from which it eventually flows into Campbell Creek which flows into Knik Arm, a navigable, tidally influenced water body.

Corrosion of the vertical standpipe has led to holes forming near the base of the pipe. Water is being drained from the lake through these holes, rather than at the top of the pipe, resulting in the water level being lower than intended.

Environmental Consequences

In the No Action Alternative, there would be no changes to the water bodies in the study area. The corroding storm drain in Tina Lake would not be repaired., unless the MOA decided to maintain it, If the storm drain is not repaired, the lake level would be lower than intended.

No modifications to Campbell Creek are anticipated with the Proposed Action. The Tina Lake proposed bridge would completely span the creek. The removal of the existing bridge is not anticipated to affect the Creek. T ina La k The Proposed Action would permanently modify e New the northern shoreline of Tina Lake by the addition Tina Lake of fill needed for the road embankment. The I Proposed Action would reduce the size of Tina Feet 0250500 Lake to approximately 2.4 acres of open water (see Figure 3.5. The approximate Nnew Tina Lake Boundary

West Dowling Road Connection Project – November 2007 November 2006 3.2-3 Water Bodies Figure 3.5). The lake would be approximately 0.8 acres acre smaller as a result of the project.

The Proposed Action would relocate replace the Tina Lake standpipe. The top of the standpipe elevation would be set at the existing water level elevation to maintain the existing Lake elevation. be set at a higher elevation (106.0 ft) and would be expected to increase the water level in Tina Lake by approximately 4 feet. This elevation is below the Base Flood Elevation established by the MOA in 1973. No long-term adverse impacts are associated with the Proposed Action. Property impacts are not anticipated as a result of relocating and replacing the standpipe. as the lake level is being restored to a historical elevation. Efforts to avoid water bodies and the impacts associated with changing the lake elevation the associated wetlands are discussed in Section 3.7, Wetlands.

Construction

Any cConstruction activity in Tina Lake would adhere to applicable state and federal permit conditions. DOT&PF would develop an Erosion and Sediment Control Plan (ESCP) to provide the contractor with guidance to prevent erosion and sedimentation from affecting Tina Lake. The ESCP describes measures the contractor must follow during construction to prevent erosion and control sediment. The guidelines for the ESCP require consideration of the following: • Plan the project to take advantage of the topography, soils, waterways, and natural vegetation. • Expose the smallest practical area for the shortest possible time. • Apply on-site erosion control measures to reduce the erosion from the site. • Use sediment control measures to prevent off-site detrimental impacts whenever primary on-site erosion control measures are insufficient. • Implement a thorough maintenance and follow-up program.

3.2-4 West Dowling Road Connection Project – November 2007 November 2006 Water Bodies

Additionally, the contractor would be required to prepare a Storm Water Pollution Prevention Plan (SWPPP) following the guidance of the ESCP. The SWPPP would contain the specific techniques that would be employed for Tina Lake. The SWPPP would typically employ previously approved BMPs to mitigate the potential for elevated pollutant levels associated with construction activities such as placing fill in the water. As Tina Lake is a relatively shallow water body, there are a number of BMPs that may be applicable. These include silt fence, straw bale barriers, and diversion berms. Another procedure the contractor may employ is placing fill during winter when the lake is frozen solid. All procedures will be evaluated for compliance with ESCP goals and permit stipulations prior to approval.

The NPDES Construction General Permit (CGP) will be complied with during construction.

Measures to protect water quality during construction are also discussed in Section 3.4 Water Quality.

A temporary diversion of Campbell Creek is not anticipated.

Mitigation and Authorizations

To mitigate the impact on Tina Lake, the standpipe would be replaced at a new location. The new standpipe would increase the water level and would help keep water in the lake longer. Grasses It is anticipated that vegetation would also be planted (or transplanted from the area being filled) along the new shoreline of Tina Lake. In a January 2007 agency coordination meeting, multiple resource agencies including DNR-OHMP and the USACE expressed a desire to not use grasses for the new shoreline. At that meeting, the resources agencies did not reach a consensus about what embankment treatment

West Dowling Road Connection Project – November 2007 November 2006 3.2-5 Water Bodies should be used. During the design phase, there will be additional agency coordination to determine a suitable embankment treatment. These activities would mitigate impacts to Tina Lake and its adjacent wetlands. Wetland impacts are discussed further in Section 3.7.

The Campbell Creek crossing would not require a USCG Section 9 Bridge Permit.

A Section 404 Permit would be required to place fill in Tina Lake. The Section 404 Permit is discussed in greater detail in Section 3.7, Wetlands. That section also discusses the measures taken to avoid and minimize impacts to water bodies.

3.2-6 West Dowling Road Connection Project – November 2007 November 2006 Water Bodies 3.3 Floodplains

Existing Conditions

The floodplain analysis is based on published Federal Emergency Management Agency (FEMA) mapping. Campbell Creek and Tina Lake both have mapped floodplains (FEMA 2004). Any work within floodplains, as identified by the FEMA maps, requires project review and approval to ensure What is a 100-year potential impacts on floodways are adequately floodplain? considered (Puff 2005). The mapped flood zones The 100-year floodplain is for Campbell Creek and Tina Lake are shown in the area that would be Figure 3.6. inundated by a flood with a 1 percent chance of The existing Campbell Creek bridge encroaches on occurring in any given the 100-year floodplain. The encroachment year. contributes to the flood hazard on Campbell Creek. The bridge constricts the water flow during high- The 100-year floodplain is sometime referred to as flow events and can worsen the upstream flooding. the base-year floodplain.

Environmental Consequences

Executive Order 11988, “Floodplain Management,” and implementing U.S. Department of Transportation (USDOT) Order 5650.2, “Floodplain Management and Protection,” establish federal policy for the protection of floodplains and floodways. The intent of these regulations is to avoid adverse impacts to floodplains, to reduce flood risks related to property loss and hazard to life, and to discourage land use development that is incompatible with natural and beneficial floodplain values. Where avoidance is not practicable, these policies require appropriate consideration of methods to minimize adverse impacts.

The No Action Alternative would keep the existing low bridge over Campbell Creek. The existing bridge is located in the floodplain and acts as a constriction during high-flow events. The constricted water can back up and cause upstream flooding that would not occur if the bridge had a larger opening.

The Proposed Action would require construction within the 100-year floodplains of Campbell Creek

West Dowling Road Connection Project – November 2007 November 2006 3.3-1 Floodplains West Dowling Road Connection Project

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3.3-2 West Dowling Road Connection Project – November 2007 November 2006 Floodplains and Tina Lake. Complete avoidance of either floodplain is not practicable because it would substantially increase project costs (by approximately $6.5 million). The increased costs are the result of needing to construct a longer bridge.

Flood modeling shows that a clear-span bridge with an opening of 89 feet would be sufficient for passage of the 100-year flow of Campbell Creek without impacts. The replacement bridge would exceed the requirement for passing the predicted 100-year flood. An MOA requirement is that any According to Anchorage development within the regulatory floodway must Municipal Code 21.60.030, not result in any increase in flood levels during the a regulatory floodway is the channel of a river or occurrence of a base (100-year) flood. other watercourse and the adjacent land areas The proposed 100-foot-long Campbell Creek bridge that must be reserved to would span most of the 100-year floodplain and discharge the base flood reduce the floodplain encroachment. The bridge without cumulatively would not result in an increase in flood levels. In increasing the water fact, the replacement bridge should result in a surface elevation more decrease in flood levels. than 1 foot.

The bridge would require filling approximately The regulatory floodway includes all lands within 0.23 acre of floodplain. The realigned Campbell the 100-year floodplain. Creek Trail and trail connections affect an additional 0.11 acre of 100-year floodplain. The impacted area of the floodplain is not wetlands. Parks and pathways are allowed uses in the floodway. Figure 3.7 shows the floodplain impacts to the Campbell Creek floodplain.

The Proposed Action also would require construction within the Tina Lake floodplain. The Proposed Action would not result in any increase in the flood levels during the 100-year flood around Tina Lake. Floodplain impacts to Tina Lake are shown in Figure 3.8. Table 3.1 summarizes floodplain impacts.

West Dowling Road Connection Project – November 2007 November 2006 3.3-3 Floodplains New Bridge over Campbell Creek

Legend Edge of Pavement Project Centerline Trail Stream Impacted Floodplain Fill Footprint Bridge Floodplain Floodway I 100 year 0250125 500 year

Feet Retaining Wall Figure 3.7 Impacts to the Campbell Creek Floodplain

Impacted Floodplain

Tina Lake

Legend 100 year Floodplain I Project Centerline 0500250 Fill Footprint

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Figure 3.8 Impacts to the Tina Lake Floodplain

Table 3.1. Floodplain Impacts Floodplain Acres Affected Tina Lake 100-year Floodplain 0.66 Campbell Road impacts 0.23 Creek 100-year Trail impacts 0.11 floodplain Total 1.00

3.3-4 West Dowling Road Connection Project – November 2007 November 2006 Floodplains Construction

No construction impacts are anticipated.

Mitigation and Authorizations

No occupied structure or building is proposed in the floodplain; therefore, the potential for increased risk of damage to buildings or loss of human life is not anticipated.

The Proposed Action would conform to applicable state and local floodplain standards.

This project is not expected to promote future incompatible floodplain development or increase potential for flood-related property damage or human life.

Work within the 100-year floodplain has been minimized to comply with Executive Order 11988.

The bridge crossing Campbell Creek would be designed to comply with MOA regulations, and would not raise the backwater surface elevation by more than 1 foot. The bridge would improve flood passage compared to the existing bridge.

Construction of any structure or placement of fill in a mapped floodplain in Anchorage requires a permit from the MOA Flood Hazard Administrator. DOT&PF will comply with permit stipulations.

Mitigation for impacts to natural floodplain values can be found in the water quality, wetlands, fish and essential fish habitat, wildlife, and water bodies sections of this EA.

West Dowling Road Connection Project – November 2007 November 2006 3.3-5 Floodplains 3.4 Water Quality

Existing Conditions

The lower 10 miles of Campbell Creek has been identified by the ADEC as a Tier II Section 303(d)- listed water-quality-limited water body for fecal coliform due to urban runoff. Tier II-listed water bodies have had assessments completed and now require Total Maximum Daily Load (TMDL) or water body recovery plans. Campbell Creek has What is the Clean Water Act? been on the Section 303(d) list for fecal coliform The Clean Water Act provides since 1990 (ADEC 2004). for comprehensive federal regulation of all sources of ADEC’s draft Alaska’s 2004/2006 Integrated Water water pollution. It prohibits the Quality Monitoring and Assessment Report discharge of pollutants from indicates that Campbell Creek is water quality non-permitted sources. In limited by fecal coliform (ADEC 2006). As a result, Alaska, the authority to a fecal coliform TMDL was developed by ADEC administer the Clean Water and it received EPA approval in June 2006. Act is delegated to the US Army Corps of Engineers and the Department of The Assessment Report concluded that water Environmental Conservation. quality problems in the Campbell Creek Drainage Basin are driven by non-point sources, and thus the Waters designated under most significant violations occur during storm Section 303(d) are “water runoff events. Two critical runoff periods are quality limited” surface during winter melt, March and April, and during waters. The listing is revised the midsummer rainfall. The resident time of water every two years. In Alaska, these water bodies are priority in Campbell Creek is short, and therefore ranked based on the severity pollutants do not have time to chemically react in- of the pollution, the feasibility stream. of implementing a water body recovery plan, and The remaining water bodies in the project area are other factors. not listed on ADEC’s Section 303(d) list of impaired water bodies. Tina Lake is surrounded by industrial areas and likely has low quality water input. Water sampling indicates petroleum hydrocarbons are found in Tina Lake (see Section 3.19 Contaminated Sites for more details).

Environmental Consequences

In the No Action Alternative, there would be no changes to the water quality in the study area. There is a potential for water quality degradation in Tina Lake. The lake is not highly visible and is surrounded by industrial uses. In recent high

West Dowling Road Connection Project – November 2007 November 2006 3.4-1 Water Quality snowfall years, a snowdump has been observed encroaching into Tina Lake. Intermixed deleterious material such as trash, road sand, silt, petroleum products, and glycol has the potential to degrade the water quality. Runoff from the surrounding area enters the water system untreated.

The Proposed Action would have minor impacts on water quality. Six thousand linear feet of new four- lane roadway and 2,700 linear feet of two-lane roadway expansion would be converted to impervious surface from the existing drainage basin. The new roadway surface area is approximately 17 acres or 5 percent of the total watershed drainage basin area of 350 acres. The Proposed Action may cause decreases in water quality due to the addition of particulate matter, oil, petroleum and other contaminates from the roadway and associated stormwater runoff. The proposed stormwater treatment system would mitigate long-term water quality impacts. Stormwater runoff would be entering Campbell Creek and Tina Lake.

In the Proposed Action, water quality in Tina Lake is expected to remain the same or improve. The increased visibility of the lake from the roadway would reduce the potential for dumping materials into the lake.

For more information on stormwater drainage, see Stormwater runoff from the roadway would be Appendix D collected via a system of curbing, structures, piping and ditches prior to treatment and outfall into Campbell Creek through the existing storm drain system (see Figure 3.9). Drainage for the Proposed Action would be directed to various outfalls from five corresponding contributing areas.

The Proposed Action has been designed to avoid and minimize impacts to water quality. These measures are described below.

Minnesota Drive to Arctic Boulevard

Runoff would be collected from the roadway surface and southern ROW and directed to the existing storm drainage pipe system along 68th

3.4-2 West Dowling Road Connection Project – November 2007 November 2006 Water Quality West Dowling Road Connection Project

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West Dowling Road Connection Project – November 2007 November 2006 3.4-3 Water Quality Avenue. A biofiltration swale would be constructed and utilized to pre-treat the runoff prior to entering the existing storm drain system. Additional treatment is provided downstream prior to entering Campbell Creek by the existing sedimentation basin located near the intersection of Minnesota Drive and Dimond Boulevard. The north side embankment and ROW would be directed through a biofiltration swale prior to discharge into the wetlands surrounding Blueberry Lake. . With this proposed treatment, no water quality impacts are anticipated.

Arctic Boulevard to C Street

In this segment, stormwater would be directed to Tina Lake and the surrounding wetlands. The USACE indicated during consultation that the wetlands would benefit from more water and as much runoff as possible should be retained for this purpose. The proposed roadway storm drain would outfall to a biofiltration swale on the north side of the embankment near Tina Lake, then passed east to the existing wetlands before transiting southward through the embankment via culverts to the lake. The proposed biofiltration swale would be sized so that water is treated prior to entering Tina Lake.

Improvements to the stand pipe in Tina Lake would also cause improvements in water quality. The improvements result in water being held in Tina Lake longer. The additional time would allow the suspended materials to settle and the wetlands to filter the water before the water enters the storm drain system.

Tina Lake presently outfalls into a storm drain system along 59th Avenue. Water from this system is treated by the sedimentation basin located near the intersection of Minnesota Drive and Dimond Boulevard. As proposed, water quality is expected to improve as the result of the Proposed Action.

3.4-4 West Dowling Road Connection Project – November 2007 November 2006 Water Quality C Street to Cordova Street

The storm drain system along the proposed roadway would direct flow from C Street south along 2nd to A Street and into an existing storm drain flowing through an existing oil and grit separator located at the east of A Sstreet Lloop at the outfall to Campbell Creek.

Cordova Street to Campbell Creek

Stormwater in the section from Campbell Creek to Cordova Street (approximately 1,400 feet) would be directed west to the A Street storm drain and an existing oil and grit separator. east to Campbell Creek. A biofiltration treatment swale would be constructed adjacent to Campbell Creek on the north side of Dowling Road. The swale design would account for the possible addition of runoff from adjacent properties to the north. As proposed, no reduction in water quality is anticipated.

Campbell Creek to Old Seward Highway The section of Dowling Road from the Old Seward Highway to Campbell Creek Street (approximately 1,000 feet) presently drains via storm drain to a biofiltration swale on the south side of Dowling Road. This swale drains to Campbell Creek. The storm drain structural components would be slightly modified to adjust to the new roadway grades and width. The swale will be analyzed for capacity with the proposed roadway expansion and adjusted as required. These modifications are not expected to have a negative impact on water quality.

Construction

Short-term impacts to water quality are expected due to construction activities. Construction may require excavation of some soils and replacement with imported granular fill materials. Proper use of BMPs will minimize construction related impacts to water quality. This will also prevent an may temporarily increase in sedimentation within Tina Lake and Campbell Creek. BMPs that

West Dowling Road Connection Project – November 2007 November 2006 3.4-5 Water Quality may be used to protect water quality in Tina Lake include winter construction, dewatering the lake or the use of floating boom supported silt fence. The project involves approximately 28 acres of ground-disturbing activities.

Excavation dewatering may be performed during construction activities which could require an ADEC General Wastewater Disposal Permit for excavation dewatering. Appropriate BMPs would be implemented to prevent scour erosion and sediment transport and to protect surface water quality during dewatering. BMPs such as using a sedimentation basin or a sediment trap would be implemented.

Water quality impacts resulting from erosion and sedimentation would be controlled in accordance with established BMPs. BMPs would include such measures as installing temporary erosion control measures such as wood excelsior mats, straw bales, and/or silt fencing until vegetation can bind the soil or diversion dikes divert stormwater away from the disturbed soils, as appropriate.

Construction impacts to water quality associated with the removal of the bridge are not anticipated.

Mitigation and Authorizations

The project includes designing drainage facilities to avoid and minimize pollution of water sources by storm or snowmelt runoff. The project’s drainage design would incorporate measures to detain water on-site or in other designated areas and to avoid direct routing of untreated stormwater directly to creeks or existing storm drain systems. Snowmelt from the adjacent grandfathered snow dump would be directed into a drainage swale for clean-up prior to entering Tina Lake.

The runoff would be treated by appropriate management practices to minimize the roadway’s adverse impacts on water quality and surface water flows.

3.4-6 West Dowling Road Connection Project – November 2007 November 2006 Water Quality For work within waters of the United States, DOT&PF would obtain a Section 404 permit from the USACE.

The designer would be required to prepare an erosion and sediment control plan. Minimizing erosion would decrease the amount of sediment entering the water system.

A Stormwater Pollution Prevention Plan (SWPPP) would be prepared by the construction contractor and implemented to obtain coverage under the NPDES General Permit for Stormwater Discharges from Construction Activities. (Note: the State of Alaska will likely assume responsibility for this program before this project is constructed. If so, then the project would be constructed in accordance with the requirements of the Alaska PDES program.) No substantial significant impacts to water quality are expected to result from construction activities. An ADEC Section 401 Water Quality Certification (Certificate of Reasonable Assurance) would be required for the project, and DOT&PF and its contractors would abide by stipulations included in that certification.

Excavation dewatering may be performed during construction activities which could require an ADEC General Wastewater Disposal Permit

Groundwater would be protected with the use of standard BMPs. A Hazardous Materials Control Plan would be prepared and implemented. If applicable during construction, a spill prevention control and countermeasure (SPCC) plan would be developed and implemented.

Other construction-related BMPs that would be implemented: • Limiting clearing and grubbing outside of the fill footprint to the extent practicable to control physical disturbance of wetlands and habitats. • Installing silt fences or other sediment control measures adjacent to waterways just beyond the estimated toe of fill to capture sediment contained in runoff

West Dowling Road Connection Project – November 2007 November 2006 3.4-7 Water Quality • Locating all staging, fueling, and equipment- servicing operations at least 100 feet away from all streams and wetlands • Having spill response equipment readily available and ensuring that construction personnel are trained in spill response to contain accidental leaks of oil or fuel from construction equipment • Disturbed areas would be re-contoured to approximate original conditions and reseeded with native vegetation to minimize erosion and stabilize stream banks within 14 days after the cessation of work on these areas. If this occurs after the growing season, then the areas will be temporarily stabilized with some other erosion control BMP’s until permanent seeding can be accomplished in the next growing season. .

3.4-8 West Dowling Road Connection Project – November 2007 November 2006 Water Quality 3.5 Coastal Zone

Existing Conditions

In 1972, the U.S. Congress passed the federal Coastal Zone Management Act to create a "partnership between state and local governments in the planning and management of coastal resources." In response to this Act, Alaska began considering comprehensive coastal management and What is the Alaska Coastal passed the Alaska Coastal Management Act in 1977. Management Program? The Alaska Coastal Management Program (ACMP) “The Alaska Coastal provides statewide policy and guidance to projects Management Program proposed within the Alaska coastal boundary. The provides stewardship for Alaska’s rich and diverse MOA is a coastal district of the ACMP. coastal resources to ensure a healthy and The federal Coastal Zone Management Act vibrant Alaskan coast that authorizes the state to review federal activities and efficiently sustains long- federally permitted activities within or affecting the term economic and coastal zone. According to the Coastal Zone environmental Boundaries Atlas, Campbell Creek is located within productivity. “ the Anchorage Coastal Zone (State of Alaska 2005). -Mission of the ACMP Figure 3.109 shows the Anchorage Coastal Zone (ADNR 2006) boundary within the study area.

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Projects that occur within the Alaska coastal boundary, as defined by the Alaska Coastal

West Dowling Road Connection Project – November 2007 November 2006 3.5-1 Coastal Zone Management Act, are subject to a consistency review to determine whether they are compliant with the state and local coastal management programs.

Environmental Consequences

The No Action Alternative would have no impact on the Coastal Zone. A Coastal Consistency Review would not be required.

Statewide Policies

The Proposed Action is consistent with the standards, goals, and policies of the ACMP. The applicable standards are discussed below.

Natural Hazards

The ACMP establishes standards for development in natural hazard areas. Anchorage is a known seismic area. The Proposed Action would be designed and take into account the potential for earthquake activity in the region to mitigate the effect of damage to bridges and roadways.

Air, Land, and Water Quality

The ACMP contains standards designed to maintain air, land, and water quality. Impacts to air, land, and water quality are discussed in Sections 3.1, 3.19, and 3.4, respectively.

Habitats

The ACMP has standards to protect habitats. Two of the protected habitats are found in the study area: “wetlands” and “rivers, streams, lakes and floodplains”. According to the ACMP, significant adverse impacts must be avoided, minimized, or mitigated. Wetland impacts caused by the Proposed Action would be minimized and mitigated; therefore, they are not significant. Wetland impacts are discussed in Section 3.7. Significant adverse impacts to rivers, streams, and lakes must also be avoided, minimized, and mitigated. Water body impacts are discussed in Section 3.2. Floodplain

3.5-2 West Dowling Road Connection Project – November 2007 November 2006 Coastal Zone impacts are discussed in Section 3.3. Other habitat protection measures can be found in Wildlife, Section 3.9 and Fish and Essential Fish Habitat, Section 3.8.

Transportation Routes and Facilities

The ACMP requires transportation projects to avoid, minimize, or mitigate the following:

• Alterations in surface and ground water drainage patterns • Disruptions in known or reasonably foreseeable wildlife transit • Blockage of existing or traditional access

The Proposed Action would minimize and mitigate alterations in surface and ground water drainage patterns. Changes to drainage patterns are discussed in Section 3.4, Water Quality. Under the Proposed Action, no disruptions to wildlife transit routes or blockages to traditional access are anticipated. The Campbell Creek bridge will provide approximately 1012 feet of clearance to facilitate wildlife movement. The clearance of the proposed Campbell Creek bridge was originally listed as 12 feet in error. The correct clearance is 10 feet which would provide 4 additional feet of clearance than the existing bridge. To increase the bridge clearance to 14 feet would cost approximately $3.1 Million and would require the relocation of 13 additional households. For more information on the bridge clearance, please see Section 4.0.

Anchorage District Policies

The Anchorage Coastal District has developed a set of enforceable policies, in addition to the statewide ACMP standards. The Anchorage Coastal Management Plan (CMP) deals directly with local coastal management objectives, is in compliance with the ACMP, and was developed to be consistent with the ACMP.

The Anchorage CMP is one tool used to implement the MOA comprehensive plan (MOA 2001) and

West Dowling Road Connection Project – November 2007 November 2006 3.5-3 Coastal Zone LRTP (DOT&PF, MOA, and AMATS 2005). The Proposed Action is included in the LRTP, and is consistent with the Anchorage CMP.

The applicable district enforceable policies are discussed below:

Park and Recreation Areas

Three Anchorage CMP policies protect park and recreation areas. These policies involve acquiring land and preserving their recreational use. The Proposed Action would remove a small portion of the Campbell Creek Greenbelt from recreational use. Construction of a trailhead for Foxtree Park would replace that land with lands of equal value. The Proposed Action would also realign the Campbell Creek Trail so that it would go under the new Campbell Creek bridge. Realigning the trail would improve safety and recreation by separating the bicyclists and pedestrians from vehicular traffic. Impacts to recreational resources are discussed in detail in Section 3.17.

River Floodplains

The Anchorage CMP has four measures to protect river floodplains. These measures discourage development in the 100-year floodplain and encourage protection of the natural functions and values of the floodplain. The bridge over Campbell Creek would be set back farther from the creek edge. This setback would reduce encroachment on the Campbell Creek floodplain, which would help retain the natural functions of the floodplain. Floodplain impacts are discussed in Section 3.3.

Class II Waters

Campbell Creek is listed as a Class II water body. The Anchorage CMP restricts uses and activities that degrade water quality or cause violations of state and federal water quality standards. The Proposed Action may have short-term impacts on Campbell Creek, but no long-term negative impacts are anticipated. Water quality impacts are discussed in Section 3.4.

3.5-4 West Dowling Road Connection Project – November 2007 November 2006 Coastal Zone

Selected Coastal and Upland Marshes and Wetlands

The Anchorage CMP describes seven measures to preserve coastal and upland marshes and wetlands. The measure that applies to the Proposed Action requires the avoidance or minimization of any identified adverse impact to wetlands from public works activities. The Proposed Action would minimize its impact on wetlands. Wetland impacts are discussed in Section 3.7.

Construction

Temporary construction activities related to the Proposed Action would not affect coastal zone management. Construction impacts would be minimized through erosion and sediment control and other BMPs for reducing impacts to environmental resources. See respective sections of this EA for details about the mitigation measures that would be incorporated into the proposed project.

Mitigation and Authorizations

DNR-OPMP, in cooperation with MOA, would make a determination of consistency with the ACMP during permitting. A finding of consistency with the ACMP must be obtained before permits can be issued for the proposed project. All conditions of the ACMP final consistency determination will be complied with.

West Dowling Road Connection Project – November 2007 November 2006 3.5-5 Coastal Zone 3.6 Vegetation

Existing Conditions

Most of the study area is already developed and native vegetation has been removed. The undeveloped portion consists of approximately 14.7 acres of wetland (discussed in Section 3.7) and 24.6 acres of upland. The two dominant upland types are paper birch forests and spruce- paper birch forests. Vegetation in the forested areas includes paper birch, prickly rose, high bush cranberry, bluejoint grass, common horsetail, fireweed, alders, spruce, willow, and bunchberry.

Environmental Consequences

Under the No Action Alternative, there would be no impact to vegetation. The vegetation would remain in its current condition. Near Tina Lake, utility companies may perform some occasional clearing to access the utility lines.

Figure 3.1110 shows the areas of vegetation that would be affected by the proposed project. The Proposed Action would require the removal of some vegetation in the study area (approximately 3.7 acres). The majority of the vegetation being removed (approximately 3.5 acres) would be within the DOT&PF ROW.

Near Tina Lake and Campbell Creek, trees would be cut or trimmed to provide adequate clearance under and adjacent to the bridge. The effects of ROW clearing activities are considered minor.

Because the intersection of Rovenna Street and 68th Avenue would be realigned, some roadway would be removed and the area would be revegetated (See Figure 3.1211). Approximately 0.52 acre would be revegetated.

Construction

Vegetation clearing, grading of fill slopes, and excavation associated with construction

West Dowling Road Connection Project – November 2007 November 2006 3.6-1 Vegetation West Dowling Road Connection Project

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Vegetation impacts would occur within the proposed ROW. Soil erosion could occur within the construction zone of the proposed project area, but would be a temporary, short-term impact. Construction BMPs would be followed to minimize erosion potential.

DOT&PF would develop a revegetation plan to be implemented by the contractor.

Mitigation and Authorizations

Measures taken to mitigate impacts on vegetation would include the following: • Erosion and sedimentation control measures would be employed during construction. • Fill material stockpiles would be covered or otherwise stabilized. • Newly disturbed but unpaved areas would be revegetated seeded, and vegetative buffers would be maintained except for areas that do not receive enough sunlight for vegetation growth such as under the Campbell Creek Bridge. as possible.

West Dowling Road Connection Project – November 2007 November 2006 3.6-3 Vegetation • Disturbance to native vegetation outside of the embankment footprint would be minimized by limiting earth-moving equipment and fill-hauling trucks to areas within the footprint of the embankment or local roads whenever possible. • The contractor would be required to use contaminant-free embankment and surface materials in construction. • DOT&PF would require the contractor to restore or stabilize all temporary disturbance areas following construction. • Slopes with the potential to affect Campbell Creek or Tina Lake would be stabilized as soon as possible but no later than 14 days after the temporary or permanent work is performed in these areas.

3.6-4 West Dowling Road Connection Project – November 2007 November 2006 Vegetation 3.7 Wetlands

Existing Conditions

Study area wetlands were delineated (HDR Alaska 2004) based on fieldwork, aerial photography interpretation and the USFWS National Wetland What is a wetland? Inventory mapping. The delineated wetlands are Wetlands are defined as: shown in Figure 3.1413. A Preliminary “those areas that are Jurisdictional Determination (PJD) (dated inundated or saturated by 01/18/2006) was developed for the project in surface or groundwater at a frequency and duration December 2005. DOT&PF determined that Tina sufficient to support, and that Lake and its contiguous wetlands were not under normal conditions do jurisdictional wetlands while the wetlands east of support, a prevalence of C Street as well as the wetlands north of Dowling vegetation typically adapted Road and west of the Alaska Railroad were for life in saturated soil jurisdictional. The USACE has determined (in conditions” [Title 33, Jurisdictional Determination dated 02/14/2006) Section 328.3(b), of Code of that Tina Lake and its contiguous wetlands are Federal Regulations]. subject to USACE jurisdiction because water from Tina Lake travels through the storm drain system Wetland locations are based on the dominance of to reach Campbell Creek and eventually into Cook hydrophytic vegetation such Inlet. Based on the USACE decision, agency as stunted black spruce and consultation meetings were conducted in sedges; hydrologic indicators December 2005, January 2006, and September such as surface water or 2006. See Appendix E for more information on saturation in pits; and hydric wetland consultation and a copy of the PJD. soil indicators such as peat soil and sulfidic odor. Wetlands FHWA has issued guidance on wetlands the FHWA are a subset of “waters of the will consider in its efforts to comply with U.S.”. All wetlands within the Executive Order 11990. It affirms that the FHWA project boundary have been will consider the effects of its actions on wetlands disturbed to some degree and now represent remnants regardless of their isolation status. Therefore, the of once-larger wetlands. FHWA will consider impacts to wetlands that are considered non-jurisdictional by the USACE because they are isolated. There are no non- jurisdictional wetlands impacted by the Proposed Action.

Palustrine wetland is the dominant wetland system in the study area. The definition of a palustrine wetland encompasses all nontidal wetlands dominated by trees, shrubs, persistent emergents, emergent mosses and lichens, as well as ponds. Campbell Creek is classified as a riverine system, which includes all wetlands and deepwater habitats contained within a channel (Cowardin et al. 1979).

West Dowling Road Connection Project – November 2007 November 2006 3.7-1 Wetlands

Six general wetland habitat types are found in the study area: emergent wetland, scrub/shrub wetland, dwarf black spruce bog, forested wetland, pond, and riverine wetland. Each is discussed in more detail below. For a more detailed description

Water Wet Soils

Water-loving Vegetation A wetland has all three components.

Figure 3.1312 Components of a Wetland of the study area wetlands, refer to the Wetlands and Waterbodies Memorandum (HDR Alaska 2004).

Emergent Wetlands Emergent wetlands in the study area are found adjacent to Tina Lake.

Scrub/Shrub Wetlands Scrub/shrub wetlands are found adjacent to Tina Lake. Small isolated patches of these wetlands exist west of Arctic Boulevard, north of Dowling Road, and southeast of the Minnesota Drive and International Airport Road intersection

Dwarf Black Spruce Bogs The dwarf black spruce bog is the most dominant Scrub/shrub wetland type of wetland community, composing 38 acres adjacent to Tina Lake (dwarf (65 percent) of the study area. Dwarf black spruce birch/sedge wetland). bog vegetation communities are located along C Street from Dowling Road to beyond 68th Avenue.

3.7-2 West Dowling Road Connection Project – October 2006 November 2007 Wetlands West Dowling Road Connection Project

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West Dowling Road Connection Project – November 2007 November 2006 3.7-3 Wetlands Forested Wetlands Forested wetlands are found adjacent to Tina Lake as well as southeast of the Minnesota Drive and International Airport Road intersection.

Ponds Tina Lake is classified as an open-water pond, and it is the only pond in the study area. Tina Lake is surrounded by emergent wetlands dominated by sedges, bluejoint reedgrass, and dwarf birch. These emergent wetlands transition into scrub/shrub wetlands and forested wetlands.

Mallards in Tina Lake. Tina Lake provides habitat for waterfowl and moose in the study area. Waterfowl feed in the shallow areas of the ponds and use the aquatic vegetation and emergent sedges and grasses along the fringe for cover from predators and for shade and thermal regulation. Mallards are the only waterfowl that were documented at Tina Lake during the 2004 bird surveys. However, it is assumed that other species common to the Anchorage area also utilize the pond and adjacent wetlands during the spring, summer, and fall.

Riverine Wetlands

Campbell Creek north of the The riparian vegetation adjacent to Campbell Dowling Road bridge. Creek channel is dominated by willows, bluejoint reedgrass, Sitka alder, prickly rose, and paper birch. The riparian vegetation supports the habitat functions of the creek by shading the water, protecting the banks against erosion, and providing organic matter, including invertebrates, that falls or washes into the creek. Campbell Creek riparian vegetation also provides wildlife travel corridors for mammals and nesting and foraging habitat for resident and migratory birds. Campbell Creek provides foraging and resting habitats for waterfowl during spring and fall migration and can provide foraging habitats for breeding ducks in the area.

The amount of each wetland type found in the study area is summarized in Table 3.2.

3.7-4 West Dowling Road Connection Project – November 2007 November 2006 Wetlands

Table 3.2. Wetlands Wetland Area (acres) Emergent wetland 0.1 (PEM1B) Scrub/shrub wetland (PSS1/4/EM1B, PSS1/EM1B, 8.1 PSS1B) Dwarf black spruce bog 2.6 (PSS1/4B) Forested wetland 0.5 (PFO1B) Pond 3.1 (PUBH) Riverine wetland 0.4 (R2UBH) Total 14.8 Source: HDR 2005

Environmental Consequences

The No Action Alternative would have no impact on wetlands.

Although most of the Proposed Action would occur in upland areas, some wetlands would be affected near Tina Lake (see Figure 3.1615). The wetland impacts are summarized in Table 3.3. The Campbell Creek bridge would completely span the riverine wetlands. The wider bridge would slightly increase the amount of shading on Campbell Creek. This impact is associated with essential fish habitat and is discussed in Section 3.8.

Table 3.3. Wetland Impacts Wetland Type Area (acres) Scrub/shrub wetlands 1.17 Pond 0.53 Total 1.70 Source: HDR

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Figure 3.1514 Impacts to Wetlands near Tina Lake

Construction

For the Proposed Action, construction-related impacts on wetlands could include temporary fill, vegetation removal, and degraded water quality. Such impacts would occur at staging areas (areas used for temporary storage and maneuvering of construction equipment) and in the area approximately 20 feet beyond the cut-and-fill prism of the new facilities (areas where construction equipment would need to operate outside of the permanent area of impact).

Placing staging areas in wetlands would be avoided. The staging areas would be located on uplands and would have no effect on wetlands.

Other construction mitigation measures may include the following: • DOT&PF would use contaminant-free embankment and surface materials in construction. • Material storage piles would not be placed in the 100-year floodplain. • Slopes with the potential to affect Campbell Creek would be stabilized as soon as practicable, but no later than 14 days after

3.7-6 West Dowling Road Connection Project – November 2007 November 2006 Wetlands temporary or permanent cessation of work in these areas. • Disturbed areas would be recontoured to approximate original conditions and reseeded with native vegetation to minimize erosion and stabilize stream banks.

Mitigation and Authorizations

Executive Order 11990, “Protection of Wetlands,” and Section 404 of the Clean Water Act, as amended, mandate that federally funded projects are to avoid construction in wetlands unless (1) there is no practicable alternative and (2) the proposed action includes all practicable measures to minimize harm to wetlands. In compliance with Executive Order 11990 and FHWA guidance, the Proposed Action has been determined to be the only practicable alternative for the West Dowling Road Connection Project. A separate Only Practicable Alternative Finding is included in Appendix E.

Based on the information provided in the Only Practicable Alternative Finding, it is determined that there is no practicable alternative to the proposed construction in wetlands and that the proposed action includes all practicable measures to minimize harm to wetlands that might result from such use.

The Proposed Action requires a permit from the USACE requesting authorization under Section 404 of the Clean Water Act for discharge of fill into waters of the United States. To obtain a Section 404 permit, the USACE must be satisfied that wetland impacts have been avoided to the extent practicable. If impacts are unavoidable, the impacts must be minimized to the extent appropriate and practicable. Compensatory mitigation is required for any remaining impacts. Measures taken to reduce wetland impacts are discussed below.

Alternatives that avoided wetland impacts were not considered reasonable and were eliminated from

West Dowling Road Connection Project – November 2007 November 2006 3.7-7 Wetlands further study. For more information on these alternatives, see Section 2.

In the Proposed Action, completely avoiding wetlands was determined to be impracticable because of the additional construction cost associated with spanning the entire complex. The Tina Lake wetland complex is approximately 950 feet at its widest point. The proximity of the Alaska Railroad crossing requires a single structure spanning both the lake and the tracks. At approximately $36 million, a bridge this length would be cost prohibitive. In addition, a bridge across Tina Lake would make it harder to provide access to Arctic Boulevard.

Given the configuration of the wetlands around Tina Lake, going around the entire wetland complex would have required shifting the alignment approximately 700 feet northward near Tina Lake. This change was considered unreasonable because it would have unacceptable business impacts and ROW costs. This alternative would require relocating approximately 60 additional businesses and the purchase of approximately 37 acres of additional ROW.

An alternative that avoided all open-water impacts was also examined (see Figure 3.1615) This alignment had the least amount of wetland impact (0.18 acre); however, it was not considered reasonable or feasible because of unacceptable intersection geometry at C Street, increased business impacts (approximately 16 more than the Proposed Action), increased ROW acquisition (approximately 15.2 acres), and a long bridge over Arctic Boulevard (approximately 700 feet). These factors would have increased the project costs to an unacceptable level. This alternative could use a bridge to avoid wetland impacts. This bridge would be approximately 110 feet long and cost an additional 3 million dollars.

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Because completely avoiding Tina Lake and the adjacent wetlands was not reasonable and feasible, an alternative that minimized wetland impacts was developed. To minimize wetland impacts, the portion of the alignment that crossed Tina Lake was progressively shifted to the north. (See Figures 3.1716, 3.1817, and 3.1918).

Shifting the alignment from the original alignment to the Proposed Action would slightly decrease the amount of fill required from approximately 22,145 cubic yards to 21,990 cubic yards3 . It would reduce the impacts to the open water by approximately 0.51 acre. However, shifting the alignment would cause slightly more wetlands to be affected (approximately 0.08 additional acre). The net result has reduced the impact to the Tina Lake wetland system by approximately 0.43 acres.

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3.7-10 West Dowling Road Connection Project – November 2007 November 2006 Wetlands Tina Lake

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Shifting the alignment would require that the proposed project acquire approximately 7.35 acres of additional ROW. This modification also would cause a slight change in the intersection geometry at the intersection of Dowling Road and C Street.

Moving the alignment farther north than the Proposed Action is not feasible for several reasons. The constraints created by the Alaska Railroad mainline, Arctic Boulevard, and a Chugach Electric Association (CEA) transmission line would restrict where the bridge piers can be located. If the bridge piers were located elsewhere, the bridge would have to be approximately 100 feet longer, which would increase the bridge cost by an estimated $2 million. This bridge would also conflict with the Alaska Railroad crossing. The Arctic Boulevard crossing arm and the associated controller would have to be relocated because the bridge would prevent the arm from being able to fully extend. The replacement crossing arm would have to be moved approximately 50 feet north, creating a gap between the crossing arm and the tracks. This additional distance would make it possible for traffic to circumvent the crossing arm and drive around, and possibly into, an oncoming train. Relocating these items would cost approximately $300,000.

West Dowling Road Connection Project – November 2007 November 2006 3.7-11 Wetlands

Shifting farther north may require reconfiguring the intersection at West Dowling and Arctic Boulevard. This intersection was recently reconfigured to solve a safety problem at the intersection. Because these roads meet at odd angles, reconfiguring this intersection may re- introduce the safety concerns. Moving the bridge farther north also would make it difficult to provide access to parcels south of Alaska Steel. Shifting the bridge would require placing fill on the existing and only access point to these parcels. If legal access to a parcel cannot be provided, DOT&PF must purchase the parcel, resulting in higher ROW costs.

Between C Street and Arctic Boulevard, driveway access from Dowling Road would not be allowed. This would eliminate the possibility of the Proposed Action leading to future driveway connections and adjacent wetland development.

The Campbell Creek bridge has been designed to avoid fill of the Class A creek-fringe wetland adjacent to Campbell Creek. The bridge would span the creek, and no piers would be needed within the creek.

Currently, Tina Lake is surrounded by industrial development and is not easily accessible by the public. The project would increase public visibility in the area, potentially limiting the amount of dumping that would occur in the lake.

Compensatory mitigation is required by USACE and EPA for the unavoidable impacts to wetlands. The amount of compensatory mitigation was determined though the Anchorage Debit-Credit Methodology. The analysis shows that the Proposed Action would incur approximately 1.51 2.06 debits. Based on discussions with EPA, it is anticipated that wetland protection measures and enhancements incorporated into the Proposed Action will receive credits ranging from 1.68 to 3.15. more than 1.51 credits and offset the need for additional mitigation. The measures included in the Proposed Action include water treatment, an increase in the water level in Tina Lake, putting

3.7-12 West Dowling Road Connection Project – November 2007 November 2006 Wetlands wetlands into public ownership, and creating a buffer between the wetlands and the adjacent industrial uses. The detailed debit-credit analysis is attached in Appendix E.

During construction, appropriate BMPs for preventing sedimentation of adjacent wetlands would be employed. DOT&PF would clearly identify vegetation clearing and construction limits (boundaries) by staking, flagging, and fencing to prevent physical disturbance beyond the project limits authorized by the USACE Section 404 Permit. Compliance monitoring would be performed as needed.

Construction staging areas would be limited to uplands, and areas within the permitted fill limits of the roadway, or properly permitted areas outside the project area to the extent feasible.

West Dowling Road Connection Project – November 2007 November 2006 3.7-13 Wetlands 3.8 Fish and Essential Fish Habitat

Existing Conditions

Campbell Creek provides for the migration, spawning, rearing, and/or over-wintering of chinook, sockeye, pink, and coho salmon; resident Dolly Varden; and rainbow trout (Alaska Department of Fish and Game [ADF&G] 2004a; MOA 1981). Within the vicinity of the project, What are resident fish? Campbell Creek supports chinook and coho salmon Resident fish are fish that rearing and spawning habitat (Seaberg 2004). In remain in fresh water for their addition, Campbell Creek and associated wetlands entire life cycle. represent important anadromous fish habitat in the MOA (MOA 1981). What is essential fish habitat? Existing fish habitat under the Dowling Road The Magnuson-Stevens Fishery bridge is limited by the lack of riparian vegetation Conservation and and lack of light under the bridge. The habitat Management Act in Title 50, immediately underneath the bridge consists of large Section 600.10, of the Code of boulders that are adjacent to the bridge abutments Federal Regulations, defines and in the channel. These boulders constrict the EFH as: channel and cause a slight increase in velocity for “…waters and substrate necessary to fish for spawning, the fish traveling upstream. Fish traveling upstream breeding, feeding, or growth pass under the bridge and do not rest or stop under to maturity…. For the purpose the bridge. Once they are past the bridge, they of interpreting the definition of usually rest in the glide habitat just upstream of the essential fish habitat, ‘waters’ bridge (Bosch 2004). include aquatic areas and their associated physical, In December 2005, a survey conducted by ADNR, chemical, and biological with assistance from HDR Alaska, Inc., indicated properties that are used by that there are no fish in Tina Lake. fish and may include aquatic areas historically used by fish where appropriate; Essential Fish Habitat ‘substrate’ includes sediment, The MSFCMA directs federal agencies to consult hard bottom, structures with NOAA Fisheries when any of activities of the underlying the waters, and federal agency may have an adverse effect on associated biological essential fish habitat (EFH). According to communities; ‘necessary’ Subpart J, Section 600.810, of the MSFCMA, an means the habitat required to adverse effect is “any impact which reduces quality support a sustainable fishery and/or quantity of EFH.” This section also notes and the managed species' that “adverse effects may include direct (e.g., contribution to a healthy ecosystem; and ‘spawning, contamination or physical disruption), indirect breeding, feeding, or growth (e.g., loss of prey, or reduction in species' to maturity’ covers a species’ fecundity), site-specific, or habitat-wide impacts, full life cycle.” including individual, cumulative, or synergistic — 50 CFR 600.10 consequences of actions.”

West Dowling Road Connection Project – November 2007 November 2006 3.8-1 Fish and Essential Fish Habitat

According to NOAA Fisheries and ADF&G’s Catalog of Waters Important for the Spawning, Rearing or Migration of Anadromous Fishes, Campbell Creek is designated an anadromous stream. (ADF&G 2006 1998). According to the ADF&G Fish Distribution Database (ADF&G 2004a), Campbell Creek (Anadromous Stream 247-60-10340) provides habitat considered to be EFH for chinook, sockeye, pink, and coho salmon. Chum salmon also occur in Campbell Creek but do not have EFH within Campbell Creek (Bosch 2004).

Environmental Consequences

The No Action Alternative would have no impact on fish or EFH.

Under the Proposed Action, no adverse impact to the aquatic resources in the project area is anticipated. No work below ordinary high water is planned in Campbell Creek.

The placement of in-stream riprap in Campbell Creek would be avoided through the use of trench fill revetments. Because no piers would be located below ordinary high water in Campbell Creek, they would be outside the EFH. Making the bridge opening wider and placing the bridge abutments farther from the creek would have a positive effect on EFH under the Campbell Creek bridge because the existing bridge constricts the creek during high- flow events.

The replacement bridge would cross more of the creek (and EFH) than the existing bridge. The increased width (approximately 64 feet wider) of the new bridge would marginally increase stream shading in this reach of Campbell Creek. Stream shading would be minimized because the replacement bridge is approximately 46 feet higher than the existing bridge allowing more sunlight to get underneath the bridge. Stream shading influences the migration, holding, and rearing patterns of salmonids and other fish. This section of Campbell Creek is glide habitat and the

3.8-2 West Dowling Road Connection Project – November 2007 November 2006 Fish and Essential Fish Habitat increased shade in this area would not be expected to have an adverse impact on EFH.

Riparian vegetation can provide multiple environmental benefits (fish habitat, bank stabilization, and filtration of surface water runoff). However, the amount of riparian vegetation affected (approximately 0.05 acre) during the course of the proposed project would not have an appreciable impact on aquatic resources or water quality. To the extent practicable, the stream banks would be reseeded or replanted to maximize the amount of riparian vegetation near the bridge.

Construction

Construction impacts associated with the removal of the existing bridge are not anticipated.

The contractor would be required to implement construction BMPs (such as silt fencing and sedimentation ponds) and to avoid disturbing sensitive areas during the development and use of any staging areas, access roads, and turnouts associated with construction. Temporary staging areas would not be located within the riparian buffers of Campbell Creek.

Construction would be timed to minimize any adverse effects to salmon during critical life stages.

Mitigation and Authorizations

The MSFCMA directs federal agencies to consult with NOAA Fisheries when any activities of the federal agency may have an adverse effect on EFH. DOT&PF initiated an agency consultation process in August 2003 by sending a project scoping letter to NOAA Fisheries. NOAA Fisheries expressed a concern that the project may have an adverse effect The EFH Assessment is located on EFH and anadromous fish resources. As a in Appendix F. result, DOT&PF requested its consultant, HDR Alaska, to prepare an EFH assessment to determine whether the project would have an adverse impact on EFH.

West Dowling Road Connection Project – November 2007 November 2006 3.8-3 Fish and Essential Fish Habitat

The EFH assessment concluded that the Proposed Action would not have an adverse impact on fish or EFH resources. On July 14, 2006, a project team representative spoke with Brian Lance of NOAA Fisheries to discuss the project and the potential impacts to Campbell Creek. Lance stated that if FHWA does not anticipate an adverse impact to EFH, an EFH assessment is not required and no further consultation is necessary at this time.

BMPs, developed in accordance with Storm Water Management for Construction Activities: Developing Pollution and Prevention Plans and Best Management Practices (EPA 1992) and Storm Water Pollution Prevention Plan Guide (DOT&PF 2004), would be employed to minimize the introduction of sediment and siltation of ponds and streams during adjacent fill placement and during bridge construction.

All fueling and servicing operations would be conducted at least 100 feet from all streams and water bodies, and fuel storage would be at least 100 feet from all wetlands and water bodies except for low mobility equipment like piles drivers that will require appropriately sized full containment measures to address the maximum spill possible.

Silt fences would be used adjacent to EFH stream channels, just beyond the estimated toe of slope.

Disturbed areas would be revegetated to stabilize soils and to minimize further runoff except in areas where vegetation will not grow such as under bridges.

The NPDES Construction General Permit would be complied with during construction.

Spill prevention plans and measures will be implemented during construction. Clean-up materials and trained personnel would be on- site throughout construction to respond to spills.

3.8-4 West Dowling Road Connection Project – November 2007 November 2006 Fish and Essential Fish Habitat Contaminant-free embankment and surface material would be used during construction.

All demolition and construction activities would occur out of Campbell Creek to avoid negative impacts on EFH. If work is necessary below OHW in Campbell Creek, a DNR-OHMP Title 41 Permit would be obtained prior to the initiation of that work.

All necessary permits and agency approvals would be obtained before project construction. Applicable permits and approvals for the proposed project are ADNR-OPMP Coastal Project Questionnaire and MOA Flood Hazard Permit.

West Dowling Road Connection Project – November 2007 November 2006 3.8-5 Fish and Essential Fish Habitat 3.9 Wildlife Existing Conditions

The project area crosses the Campbell Creek Greenbelt, which is used by wildlife as habitat and as a migration corridor. The wetlands adjacent to Tina Lake are also used as wildlife habitat. Other locations in the project area consist of highly developed industrial/urban setting with patches of fragmented habitat that provides marginal wildlife habitat.

Birds HDR Alaska conducted bird surveys to document species presence, habitat associations, and nesting in the study area during June 2004. Bird surveys were conducted at Campbell Creek upstream and downstream of the Dowling Road bridge and Tina Lake. Twenty-five species were documented in the study area. These species are all commonly found in the Anchorage area. See Appendix D for a list of bird species recorded during the surveys and where they were detected.

Bald Eagles Bald eagles are protected under the Bald and Golden Eagle Protection Act. The USFWS enforces the Act by restricting land use in a 330- foot buffer around bald eagle nesting trees. No bald eagle nests have been identified within the vicinity of the proposed project (Conner 2004; Seaberg 2004).

Mammals Moose and muskrat inhabit portions of the study area. Red squirrel, coyote, short-tailed weasel, mink, beaver, snowshoe hare, shrew, and a variety of small rodents can also be found in the study area. Small numbers of brown bear, black bear, lynx and red fox reside in the Anchorage Bowl but are infrequently seen in the study area. None of these mammals is on the ADF&G species of special concern list. These animals are not unique to the study area.

The existing Campbell Creek bridge abutments are near the edge of the creek. Consequently, the

West Dowling Road Connection Project – November 2007 November 2006 3.9-1 Wildlife bridge does not adequately accommodate terrestrial wildlife crossing. Because the amount of dry land between the creek bank and the bridge abutment is not sufficient, large mammals must travel in the creek. The existing bridge provides approximately 6 feet of clearance, which is not adequate to facilitate moose passage. ADF&G expressed a concern about vehicle-moose collisions at this crossing (Anderson 2003). DOT&PF Highway Analysis System records indicate that there have been two reported vehicle- moose collisions on Dowling Road between Old Seward Highway and Potter Drive in the last 15 years. The Campbell Creek bridge also causes habitat fragmentation.

Environmental Consequences

Under the No Action Alternative, there would be no impact on wildlife resources. The existing bridge would remain and continue to impede wildlife movement and fragment habitat (Anderson 2003).

Under the Proposed Action, long-term impacts to wildlife are expected to be minimal. Wildlife habitat will be minimally affected by vegetation removal and fill in or around Tina Lake. Removal of vegetation would reduce the food supply and habitat for wildlife. Approximately 3.7 acres of vegetation would be removed.

The Proposed Action would increase the amount of habitat fragmentation in the study area. Near Tina Lake However, much of the area that would be affected has been disturbed and adjacent areas would remain usable as habitat. Habitat fragmentation will also occur near the ChangePoint Church. This patch of forested habitat is used by moose for feeding and resting. It is also used as transit link between other blocks of habitat. This project will permanently alter this habitat by removing vegetation and increasing traffic noise. However, some of the existing habitat has already been removed due to the development of a recreational facility. Habitat will also be

3.9-2 West Dowling Road Connection Project – November 2007 November 2006 Wildlife removed as part of the MOA’s 68th Avenue extension project.

In Anchorage 2020, the area being impacted is not identified as important wildlife habitat. Anchorage 2020 does identify important wildlife habitat, such as Blueberry Lake and Connors Bog, near the project area.

The Campbell Creek bridge would provide approximately 10 12 feet of clearance that could be used by migrating wildlife. Wildlife, including moose, would be able to cross under the bridge, providing a safer route across Dowling Road than the current route. The availability of an under- bridge crossing is expected to enhance wildlife movement in the area and reduce the number of vehicle-moose collisions.

In 2003, ADF&G requested 10 feet of clearance originally under the Campbell Creek bridge to allow for wildlife passage (Anderson 2003). DNR-OHMP is now requesting a minimum of 14 feet of clearance. Raising the road/bridge elevation to provide additional clearance is not a practicable option because it would result in additional ROW impacts and would require the acquisition of additional land from the Campbell Creek Greenbelt. The Campbell Creek Greenbelt is considered a Section 4(f)/6(f) resource. Section 4(f) of the Department of Transportation Act and Section 6(f) of the Land and Water Conservation Fund Act protect land from being converted to non- recreational uses except when there is no feasible and prudent alternative. When there is no alternative, the impacts to the resource must be minimized.

Alternative ways of increasinged the clearance under the bridge without increasing the elevation were explored, including lowering the ground on the west side of the bridge and reducing the depth of the bridge girders. Lowering the ground to provide a minimum of 14 feet of clearance, would bring the ground level would be below the water level of Campbell Creek. This area is likely to have

West Dowling Road Connection Project – November 2007 November 2006 3.9-3 Wildlife standing or flowing water at all times making it less suitable for moose passage.

The proposed bridges uses girders that are 65 inches in depth and are designed to accommodate an additional 4 inches of asphalt. Reducing the bridge depth can be accomplished by using a 54 inch girder. However, at 100 feet long, the bridge is near the maximum practical length of the 54 inch girder.

Switching to a steel bridge would reduce the bridge depth. However, a steel bridge would require piers beneath the bridge in the 100-year floodplain. A steel bridge would also be approximately 25 feet longer than a bulb-tee girder bridge. In general, DOT&PF prefers not to use steel bridges because it costs more to operate and maintain them than a bulb-tee girder bridge.

The bridge design will be developed in more detail during the design phase of the project. In that phase, DOT&PF will continue to coordinate with DNR-OHMP regarding moose passage under the Campbell Creek bridge.

Roadway noise is not expected to be a concern near Tina Lake, even though noise levels are expected to increase. All species found in the study area are common in the Anchorage area. The existing industrial development would have caused any noise-sensitive species to relocate elsewhere.

Construction

Construction would generate noise and dust levels that discourage use of the surrounding undisturbed area by wildlife. These impacts would be temporary and would not occur after construction was completed.

Road construction activities would disrupt the activities of land mammals. These effects would be greatest near Tina Lake where there is no existing roadway.

3.9-4 West Dowling Road Connection Project – November 2007 November 2006 Wildlife

Birds in and immediately adjacent to the roadway would be disturbed by construction, which would temporarily displace birds from nesting, resting, and foraging habitat. Nesting waterfowl might abandon nests if disturbed by construction activities. Construction activities might affect individual birds and nest productivity. However, it is expected that birds would relocate to adjacent habitat and the overall impacts on birds would not result in measurable population changes. No vegetation clearing activities would occur during the migratory bird nesting season established by the USF&WS.

Mitigation and Authorizations

To mitigate the amount of habitat fragmentation, the bridge over Campbell Creek would provide more clearance than the existing bridge (approximately 4 additional feet) 10 feet requested by ADF&G to allow for wildlife passage (Anderson 2003). The improved bridge over Campbell Creek would provide wildlife an alternative to crossing Dowling Road. This alternative crossing route is expected to reduce the number of vehicle-moose encounters.

Low-level bridge deck lLighting would be provided on the bridge upgraded road to allow pedestrians and motorists to see moose that may get onto bridges.

Construction clearing would occur outside the migratory bird nesting period as established by the USF&WS to the extent feasible. In Anchorage, the bird nesting period is May 1 thru July 15.

West Dowling Road Connection Project – November 2007 November 2006 3.9-5 Wildlife 3.10 Threatened and Endangered Species

Existing Conditions

HDR Alaska biologists reviewed information provided by ADF&G, USFWS, and NOAA Fisheries on listed species and critical habitat in Alaska, and conducted field surveys to document What is the Endangered habitat and species present within the study area. Species Act? This 1973 federal law, No federal- or state-listed threatened or amended in 1978 and 1982, endangered species or critical habitat was found in protects troubled species the study area (Seaberg 2004, Detwiler 2004, Lance from extinction. NOAA 2004). Fisheries and USFWS decide whether to list species as Environmental Consequences threatened or endangered. Federal agencies must avoid jeopardy to and aid in the No threatened, endangered, or other federally recovery of listed species. protected species would be affected by the No Action Alternative or the Proposed Action.

Construction

No construction impacts are anticipated.

Mitigation and Authorizations

No mitigation is required.

West Dowling Road Connection Project – November 2007 November 2006 3.10-1 Threatened and Endangered Species 3.11 Land Use and Zoning

Existing Conditions

According to the most recent MOA geographic information system (GIS) files, the study area contains a diversity of land uses including commercial, residential, and industrial properties What is Anchorage 2020? (see Figure 3.2120). Undeveloped land is being used The document Anchorage for open space or utility corridors, or is vacant and 2020: Anchorage Bowl Comprehensive Plan, not in use. Figure 3.2019 shows the percentages of adopted by the Municipal the different land uses found in the study area. Assembly on February 20, Most residential land occurs near the project 2001, is a blueprint for termini. The industrial land is near the center of development in the the proposed project. The Alaska Railroad ROW is Anchorage Bowl through used for railroad purposes. The road ROW is used the year 2020. by DOT&PF and MOA for roads.

14.27% 11.10% 0.85% Residential 1.55% 13.28% Commercial Industrial Parks, Open Space Right of Way 24.85% Transportation Utilities Vacant 30.84% 3.27%

Figure 3.2019 Land Use in the Study Area The Anchorage 2020 comprehensive plan (MOA 2001) identifies much of the study area as industrial reserve (see Figure 3.2221). An industrial reserve, as described in the comprehensive plan, contains large vacant areas zoned for industrial use and is strategically located near important transportation facilities such as the Ted Stevens Anchorage International Airport, the port, the railroad yard, and the highway system. Access to an efficient transportation network is important for the movement of goods around the city and state.

Anchorage 2020 designates Arctic Boulevard as a transit-supportive development corridor. According to Anchorage 2020, a transit-supportive development corridor represents “optimal locations for more intensive commercial and residential land use patterns which will support and encourage higher levels of transit service.”

West Dowling Road Connection Project – November 2007 November 2006 3.11-1 Land Use and Zoning West Dowling Road Connection Project

Old S e w a r d H w y

L T B E E N C R E A G M P E K B E L L C R E Dowling Rd

C St C St

e k a L

a A r c t i c B l v d n i

T 68th Ave

Arctic Blvd

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r r y b e e e l u k B L a D r o t a n e s 0500250 M i n

Feet I Source: Municipality of Anchorage, ADOT | File: Z:\07072 DOT&PF\240 DowlingRoad Ext\Work Products\GIS\MXD\EA Land Use Figure 3.21 20 Residential Institutional Transportation Study Area Lake Commercial Parks, open space Vacant Alaska Railroad Land Use

Legend Industrial Right of way Stream

3.11-2 West Dowling Road Connection Project – November 2007 November 2006 Land Use and Zoning O

l Arctic Blvd

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d i Feet c Industrial Reserve Figure 3.2221 Anchorage 2020 Land Use

The existing zoning in the study area allows for residential, industrial, commercial, and public lands and institutions. Figure 3.2322 shows the zoning designations in the study area. Table 3.4 describes the zoning codes.

Table 3.4. Zoning Description Designation Local and Neighborhood Business District B-1A General commercial uses B-3 Light manufacturing and wholesale I-1 Light manufacturing and wholesale with special limitations I-1 SL Heavy industrial I-2 Public lands and institutions PLI Public lands and institutions - park PLI-p Single-family residential R-1 Two-family residential (large lot) R-2A Multi-family residential R-2M Urban and suburban single-family, two-family, and multi-family residential R-3 Urban and suburban single-family, two-family, and multi-family residential with special limitations R-3 SL Transition District T

West Dowling Road Connection Project – November 2007 November 2006 3.11-3 Land Use and Zoning West Dowling Road Connection Project

Old S e w a r d H w y

Dowling Rd Dowling d

a C St

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Feet I Source: Municipality Anchorage,of ADOT | File: Z:\07072 DOT&PF\240 DowlingRoad Ext\Work Products\GIS\MXD\EA Zoning Figure 3.23 22 B-1A I-1 SL PLI-p R-2M T Local Street Study Area B-3 I-2 R-1 R-3 Arterial Alaska Railroad Zoning

Legend I-1 PLI R-2A R-3 SL Freeway Stream

3.11-4 West Dowling Road Connection Project – November 2007 November 2006 Land Use and Zoning Environmental Consequences

The No Action Alternative would have no change on existing land use patterns and zoning in the study area. However, long-term negative effects on land use would occur without the project. It would not help implement Anchorage 2020. The industrial reserve (shown in Figure 3.2221 would continue to lack adequate connections to Minnesota Drive and New Seward Highway. The lack of connectivity could limit the growth of the industrial reserve.

The Proposed Action would have cause direct conversion of land uses through the construction of the roadway. Most of the proposed corridor has already been reserved as a road corridor in anticipation of this project. The ROW acquired would come primarily from residential and industrial uses. Because the project is anticipated in the comprehensive plan and long range transportation plan it is consistent with those plans and benefits their implementation. The land use impacts and planning implications are discussed in more detail below..

The ROW acquired from the industrial users would take that land out of use for industrial purposes. The ROW acquisition would slightly reduce the amount of industrial land in the industrial reserve. However, improved access to the industrial area would make it easier for industrial users to transport goods and benefit the industrial reserve. The proposed project is expected to have a minimal impact of the availability of industrial land. Inside the Industrial Reserve, there are approximately 244 acres of vacant land. Other land within the reserve could also be redeveloped to accommodate additional industrial uses.

The Proposed Action is consistent with Anchorage 2020. The Proposed Action would benefit the industrial reserve by providing additional access to and from Ted Stevens Anchorage International Airport and National Highway System. The Proposed Action would help reduce traffic congestion, pollution, and noise by reducing trip lengths.

West Dowling Road Connection Project – November 2007 November 2006 3.11-5 Land Use and Zoning

The Proposed Action would help meet the MOA goals of sustaining parks, trails, and recreation by including sidewalks, pathways, and improvements to the Campbell Creek Trail. These trail connections would help implement the MOA Areawide Trails Plan (1997) which calls for a grade- separated path under Dowling Road. These features would also improve access to the Arctic Boulevard transit-supportive development corridor that connects with adjacent neighborhoods.

Construction

Because construction staging areas would be located with the ROW, no construction impacts are anticipated.

Mitigation and Authorizations

No mitigation is needed and no authorizations would be required.

3.11-6 West Dowling Road Connection Project – November 2007 November 2006 Land Use and Zoning 3.12 Land Ownership

Existing Conditions

The majority of the land in the study area is For more information, see the privately owned. Small amounts of land are owned Conceptual Stage Relocation by CEA, the State of Alaska, and the MOA. The Report in Appendix G. remaining property is ROW managed by MOA, DOT&PF, and Alaska Railroad Corporation. Land ownership is shown in Figure 3.2423.

Environmental Consequences

The No Action Alternative would have no impact on land ownership.

The Proposed Action would require acquiring approximately 23.4 acres from 47 privately owned and seven MOA-owned parcels (see Figure 3.2524). What is Section 6(f)? A more detailed map of the potential acquisition is Section 6(f)(3) of the act that included in the Conceptual Stage Relocation Report created the Land and Water in Appendix F. Of the privately owned parcels, 17 Conservation Fund contains are anticipated to require full purchases, and the provisions to protect parkland remaining 31 parcels to be partial acquisitions. acquired with these funds.

The seven MOA parcels would be partially The act states: acquired. These parcels are part of the Campbell “No property acquired or Creek Greenbelt and were purchased with money developed with assistance from the LWCF. Properties purchased through the under this section shall, without the approval of the LWCF, commonly called Section 6(f) properties, Secretary, be converted to have restrictions on conversion to other land uses. other than public outdoor See Section 3.17, Recreation Resources, for more recreation uses. The Secretary details. shall approve such conversion only if he finds it to be in One parcel along the proposed alignment is already accord with the then existing owned by the State of Alaska. The State also owns comprehensive statewide existing ROW that would be used for the proposed outdoor recreation plan and project. only upon such conditions as he deems necessary to assure the substitution of other The MOA 2006 tax assessor value for the land and recreation properties of at structures to be acquired is approximately $11.7 least equal fair market value million. The market value of this land is and of reasonably equivalent approximately $15.2 million. usefulness and location” (National Park Service, 2006). The number of potential acquisitions was identified by using the MOA tax assessor’s data. ROW

West Dowling Road Connection Project – November 2007 November 2006 3.12-1 Land Ownership

West Dowling Road Connection Project

Old S e w a r d H w y

L T B E E N C R E A G M P E K B E L L C R E Dowling Rd Dowling

C St C St

A r c t i c B l v d 68th Ave

Arctic Blvd

R o v e n n a S t

D r o t a n e s 0500250 M i n

Feet I Source: Municipality of Anchorage, ADOT | File: Z:\07072 DOT&PF\240 DowlingRoad Ext\Work Products\GIS\MXD\EA Land Ownership Figure 3.24 23 Municipality of Anchorage State Study Area Native Corporation No Data Alaska Railroad Land Ownership

Legend Private Existing ROW Stream

3.12-2 West Dowling Road Connection Project – November 2007 November 2006 Land Ownership West Dowling Road Connection Project

Old S e w a r d H w y

L T B E E N C R E A G M P E K B E L L C R E Dowling Rd Dowling

C St C St

A r c t i c B l v d 68th Ave

Arctic Blvd

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Feet I Source: Municipality of Anchorage, ADOT | File: Z:\07072 DOT&PF\240 DowlingRoad Ext\Work Products\GIS\MXD\EA Anticipated Parcel Figure 3.25 24 Acquisition Type Full Study Area Stream Anticipated Right of Way

Legend Partial Alaska Railroad Park Acquisitions

West Dowling Road Connection Project – November 2007 November 2006 3.12-3 Land Ownership impacts may be subject to adjustment during final design.

Relocations What is the Uniform Relocation The Uniform Relocation Assistance and Real Assistance and Real Property Property Acquisition Policies Act of 1970 and the Acquisition Policies Act of Uniform Relocation Act Amendments of 1987 1970? require uniform and equitable treatment for those This legislation provides for persons displaced by a federal action. The uniform and equitable Conceptual Stage Relocation Report, in Appendix treatment of persons G, provides more information about relocations. displaced from their homes, businesses, or farms by federal Sixteen business relocations and 48 residential projects and programs, or relocations are expected. Of the residential federally assisted programs, and establishes uniform and relocations, 2 involve single-family residences, and equitable land acquisition the remaining 46 involve eight multifamily policies for federal and buildings. Relocation expenses are estimated at federally assisted programs. three times the value of the property. Whenever acquiring real property for a program or The supply of comparable housing in Anchorage is project by a federal agency sufficient to relocate affected households. A review results in displacing anyone, of real estate listings indicates a variety of housing the agency is required to types and prices are available in Anchorage. As of consider any affected July 20, 2006, 57 comparable single-family houses displaced persons or business for relocation assistance and 60 comparable condominium units were offered eligibility and offer relocation for sale. More than 200 apartments of varying sizes planning, assistance, and rents were also available. It is not expected coordination, and advisory that any residential relocations would qualify for services to eligible relocatees. last resort housing.

The cost of relocating within Specific ROW impacts would be determined and 50 miles is reimbursable as the requirement of the Uniform Relocation Act part of the relocation process. would be met after the proposed project advanced Other relocation-related costs may be considered for into final design and construction. The ROW reimbursement. In requirements and costs would be refined during accordance with the law, all final design. owners of acquired property, without discrimination, are Construction compensated for their loss of property at fair market value No construction impacts are anticipated. and all displaced persons are eligible for moving costs reimbursement. Mitigation and Authorizations

Property acquisition and relocation would be conducted in accordance with the Uniform Relocation Assistance and Real Property Acquisition Act of 1970, as amended, and the

3.12-4 West Dowling Road Connection Project – November 2007 November 2006 Land Ownership Alaska Relocation Assistance and Real Property What is last resort housing? Acquisition Practices, Alaska Statutes (AS) Last resort housing is 34.60.010 et seq. housing used when comparable decent, safe, DOT&PF would provide relocation assistance to and sanitary replacement persons or businesses displaced by the proposed housing within a project in accordance with the Federal Uniform household’s financial Relocation Assistance and Real Property means can not be Acquisition Act and the Alaska Relocation provided. Measures to provide last Assistance and Real Property Acquisition Practices. resort housing include Property owners would be paid the fair market paying for replacement value for real property acquired for ROW or housing in excess of the easements. URA maximum amounts, construction of housing, The requirements of the Civil Rights Act of 1968 and the provision of a and EO 12898 will be complied with to mitigate direct loan. any adverse effects to low income or minority Last resort housing populations or individuals. assistance is available for 42 months. Land purchased with LWCF grants would be replaced with recreation lands of at least equal fair market value and/or reasonably equivalent usefulness and location. Replacement land is discussed in Section 3.17, Recreation Resources.

West Dowling Road Connection Project – November 2007 November 2006 3.12-5 Land Ownership 3.13 Socio-Economics

Existing Conditions What is a census block? A block is the smallest Population geographic unit for which the Census Bureau tabulates 100 percent The Alaska Department of Labor & Workforce data. It is a subdivision of Development estimates that Alaska had a a census tract. Many population of 663,661 and the MOA had population blocks correspond to of 278,241 in 2005. Estimates were not available at individual city blocks a smaller scale. Data from 2000 Census (U.S. bounded by streets, but Census Bureau 2006) is used for this EA because it especially in rural areas, is the most recent data available at the state, blocks may include many municipal, and project level. square miles and may have some boundaries that are not streets. Population information is available at the census block level. However, census block boundaries do not correspond to the study area boundaries exactly. Consequently, for analysis purposes, the study area includes all census blocks that intersect the study area. Figure 3.2625 shows population by What groups are census blocks in the study area. Approximately considered minority 1,671 people live in the study area. populations? • Black (having origins in Race any of the black racial groups of Africa) • Hispanic (of Mexican, The racial composition of the study area was also Puerto Rican, Cuban, studied at the census block level. Approximately Central or South 74.4 percent of the study area population (1,243 American, or other people) classified themselves as “White Alone.” Spanish culture or This percentage is greater that that of the State origin, regardless of (69.3 percent) and the MOA (72.2 percent). The race) largest minority group in the study area is American • Asian-American Indian and Alaska Native, with 119 people selecting (having origins in any this category. An additional 111 people identified of the original peoples of the Far East, themselves as being two or more races. All other Southeast Asia, the groups had a population below 100. Racial Indian subcontinent, or composition for the study area is compared to the Pacific Islands) those for the State and MOA in Table 3.5. • American Indian or Alaska Native (having Executive Order 12898 requires federal agencies to origins in any of the identify and address disproportionately high and original people of adverse effects its activities have on minority and North America and low-income populations. Census data at the block who maintain cultural level was used to determine if any minority identification through tribal affiliation or populations exist in the study area. The census data community recognition)

West Dowling Road Connection Project – November 2007 November 2006 3.13-1 Socio-Economics West Dowling Road Connection Project

Old S e w a r d H w y

32 101

111

193

24

53 Rd Dowling

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Feet I Source: Municipality Anchorage,of ADOT | File: Z:\07072 DOT&PF\240 DowlingRoad Ext\Work Products\GIS\MXD\EA Population <= 50 201 - 300 Local Street Alaska Railroad Study Area Figure 3.26 25 51 - 200 > 300 Arterial Stream Population by

Legend Freeway Lake Census Block

3.13-2 West Dowling Road Connection Project – November 2007 November 2006 Socio-Economics showed that 476 of the 1,671 people, or 28.5 percent, in the study area are considered minorities. This percentage is less than those for the State (32.4 percent) and MOA (30.1 percent).

Table 3.6 compares minority status of the study area to those for the State and MOA. Figure 3.2726 shows the percentage of minority residents by census block.

Table 3.5. Racial Composition Race Alaska MOA Study Area White 592,786 188,009 1,243 Black/African 21,787 15,199 64 American American Indian 98,043 18,941 119 and Alaska Native Asian 25,116 14,443 92 Native Hawaiian 3,309 2,423 8 and other Pacific Islander Some other race 9,997 5,703 34 Two or more races 34,146 15,575 111 Total 648,818 270,951 1,671 Hispanic or Latino1 25,852 14,799 89 1 Hispanics or Latinos may be of any race; therefore, they are included in the applicable race categories. Source: Census 2000 data from U.S. Census Bureau 2006 Table 3.6. Minority Status Minority Alaska % MOA % Study % Status Area White, Non- 423,660 67.6 181,919 69.9 1,195 71.5 Hispanic Minority or 203,272 32.4 78,364 30.1 476 28.5 Mixed Race Total 626,932 100 260,283 100 1,671 100 Source: Census 2000 data from U.S. Census Bureau 2006

Income

In the 2000 Census, the smallest geographic unit for which income information is available is the census block group. For analysis purposes, all census block groups intersecting the study area were used. The average per capita income, at $25,059 is higher than for the State ($22,600) and similar to that for the Municipality ($25,287). At $49,730, the average median household income of

West Dowling Road Connection Project – November 2007 November 2006 3.13-3 Socio-Economics

West Dowling Road Connection Project

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21%

0% r r y b e e e l u k B a L D r o t a n e s 0500250 M i n

Feet I Source: Municipality Anchorage,of ADOT | File: Z:\07072 DOT&PF\240 DowlingRoad Ext\Work Products\GIS\MXD\EA Percent Minority Figure 3.27 26 0% 41% - 60% Local Street Study Area Stream 1% - 20% > 60% Arterial Alaska Railroad Lake Percent Minority

Legend 21% - 40% Freeway

3.13-4 West Dowling Road Connection Project – November 2007 November 2006 Socio-Economics the study area is slightly lower than those for the State ($51,571) and MOA ($55,546). Median household income by block group is shown in Table 3.7 and Figure 3.2827.

Table 3.7. Median Household Income (1999 dollars) Median Area Household Income ($) Alaska 51,571 MOA 55,546 Block Group 1, Census 73,281 Tract 25.01 Block Group 2, Census 45,329 Tract 25.01 Block Group 3, Census 43,542 Tract 25.01 Block Group 1, Census 39,000 Tract 25.02 Block Group 2, Census 48,917 Tract 25.02 Source: Census 2000 data from U.S. Census Bureau 2006

Low-income status varies with household size. Table 3.8 shows the Alaska poverty guidelines for What is a low-income different household sizes. In Anchorage, the population? average household size is 2.67. Therefore, a block A person whose group must have a median household income below household income (or in $19,590 to be considered a low-income population. the case of a community As shown in Figure 3.2928, all block groups in the or group, whose median study area have a median income above $19,590. household income) is at or below the U.S. Department of Health and Table 3.8. 2004 DHSS Poverty Human Services poverty Guidelines for Alaska guidelines. Size of Family Unit Poverty Guideline ($) 1 11,630 2 15,610 3 19,590 4 23,570 5 27,550 6 31,530 7 35,510 8 39,490 For each additional 3,980 person, add Source: Federal Register, Vol. 69, No. 30, February 13, 2004, pp. 7336-7338.

West Dowling Road Connection Project – November 2007 November 2006 3.13-5 Socio-Economics West Dowling Road Connection Project

Old S e w a r d H w y

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Feet I Source: Municipality Anchorage,of ADOT | File: Z:\07072 DOT&PF\240 DowlingRoad Ext\Work Products\GIS\MXD\EA Median Household Income Figure 3.28 27 $18,396.00 - $45,000.00 Local Street Study Area Lake $45,000.01 - $65,000.00 Arterial Alaska Railroad Median Household Income

Legend $65,000.01 - $115,868.00 Freeway Stream (1999 Dollars)

3.13-6 West Dowling Road Connection Project – November 2007 November 2006 Socio-Economics Median Household Income

$80,000

$70,000

$60,000

$50,000

$40,000

$30,000

$20,000 Poverty Level $10,000

$0 SOA MOA Block Block Block Block Block Group 1, Group 2, Group 3, Group 1, Group 2, Census Census Census Census Census Tract Tract Tract Tract Tract 25.01 25.01 25.01 25.02 25.02

Figure 3.2928 Median Household Income and the Poverty Level Neighborhoods

The study area is located within the Taku/Campbell Community Council. The community council is

bounded by New Seward Highway to the east, Anchorage Minnesota Drive to the west, International Airport Road to the north, and 92nd Avenue to the south (see Figure 3.3029). The study area is dominated by industrial and commercial development with residential development near the project termini. Taku/Campbell I Community For more information on land use in the study area, Miles Council 02.55 see Section 3.11, Land Use and Zoning. Figure 3.3029 Taku/Campbell Community Council Business and Employment

Anchorage is the financial and commercial center of Alaska, as well as the major transportation hub. Anchorage has enjoyed a relatively stable economy, averaging just more than 2 percent growth in recent years. The four largest sectors of the local economy are oil/gas, military, transportation, and services (Anchorage Economic Development Corporation 2005).

Environmental Consequences

Under the No Action Alternative, the socio- economic conditions would remain the same. The No Action Alternative will not have a

West Dowling Road Connection Project – November 2007 November 2006 3.13-7 Socio-Economics disproportionate impact on minority or low-income populations.

The lack of roadway connections will maintain the existing circuitous trip patterns necessary to reach adjacent neighborhoods. Without more direct access, emergency response times are not expected to improve. Without the sidewalk and trail connections, it will be harder for pedestrians to reach the Arctic Boulevard transit corridor.

The No Action Alternative restricts the development potential of the industrial reserve.

The Proposed Action would have a minor impact on population. The population of the study area would be slightly lower because several residential properties would be acquired. Because the study area is mostly non-residential, it is expected that these households would move elsewhere in the Anchorage Bowl. See Section 3.12, Land Ownership, for information on property acquisitions and relocations. No changes to racial composition and median household income are anticipated.

Environmental Justice Analysis indicates that minority or low-income populations would not be disproportionately affected by the Proposed Action. The race/ethnicity composition of the study area is comparable to those of the MOA and the State. The study area has a slightly lower percent of minorities than the MOA and the State. In two census blocks within the study area, minority residents compose 50 percent or more of the population. In Census Block 2011, Block Group 2, Census Tract 25.01, however, the proposed project would affect only industrial or vacant land within the block group; therefore, it is unlikely that the proposed project would have a disproportionate impact on the minority population (see Figure 3.3130).

Census Block 1006, Block Group 1, Census Tract 25.01, is affected by the MOA 68th Avenue project. The area affected by that project is also dominated by non-residential development (see Figure 3.3031).

3.13-8 West Dowling Road Connection Project – November 2007 November 2006 Socio-Economics No additional ROW is being acquired as part of the MOA 68th Avenue project. The Proposed Action would benefit the households in this census block by reducing the average daily traffic (ADT) on 68th Avenue from approximately 10,000 ADT to just under 2,600 ADT.

Census Block 2011 Block Group 2 Census Tract 25.01

Legend Project Centerline Alaska Railroad Census Boundary Land Use Residential I Commercial 0500250 Industrial

Feet Vacant

Figure 3.3130 Impact of the Proposed Action on Census Block 2011, Block Group 2, Census Tract 25.01

Census Block 1006 Block Group 1 Census Tract 25.01

Legend Project Centerline Census Boundary Land Use Residential Commercial I Industrial 0500250 Transportation

Feet Vacant

Figure 3.3231 The impact on Census Block 1006, Block Group 1, Census Tract 25.01

West Dowling Road Connection Project – November 2007 November 2006 3.13-9 Socio-Economics Four of the five block groups in the study area have a median household income below MOA and state levels. The median income in all five block groups exceeds the poverty guideline for the average household size (2.67) in Anchorage. Consequently, a disproportionate effect on low- income populations is not anticipated. See the Conceptual Stage Relocation Report, in Appendix G, for more information on Environmental Justice.

The Proposed Action may have minor social impacts, primarily because of the acquisition of residential parcels. Displaced persons are anticipated to relocate within Anchorage. The neighborhood would have improved access to other parts of town. Residential properties along Dowling Road may become less desirable because of increased traffic and noise. The Campbell Creek Greenbelt will be improved due to the grade-separated trail crossing and new trailhead.

No concentrated elderly, disabled, or other transit dependent groups have been identified in the study; however, the road, sidewalk, and access improvements would benefit any transit users in the area.

The school district would experience a positive impact because it would have more potential routes for school buses. There would be no impact on recreation areas or churches. Recreational areas, such as the Campbell Creek Greenbelt, will be impacted but it has been determined that there will be a net benefit to this resource due to the grade-separated trail and new trailhead. For more information on the benefits to Campbell Creek Greenbelt, please refer to the Programmatic Section 4(f) evaluation. Because of the access improvements, emergency services response times are expected to decrease in some parts of the study area. The Proposed Action is also expected to decrease commute times from southwest Anchorage to the University-Medical District. This reduction in travel time would be a positive economic benefit because of the opportunity cost of that time.

3.13-10 West Dowling Road Connection Project – November 2007 November 2006 Socio-Economics Businesses located in the industrial reserve would have improved access to New Seward Highway and Minnesota Drive, two of the major north-south transportation routes in Anchorage.

Completion of the project may cause properties in the industrial reserve to gain value because of their proximity to a new arterial road and the increase in accessibility to the rest of Anchorage. Any changes would be dictated by market demand for those properties, and changes in value would eventually lead to increased or decreased property taxes.

The businesses that would be relocated are expected to relocate within Anchorage; therefore, an economic loss is not anticipated.

Construction

Construction activities would likely have an overall positive impact on the local economy. Construction activities are not expected to affect minority and low-income populations.

Construction may have a minor beneficial economic impact by increasing local and regional employment and wage income. The number of positions and length of employment would vary depending on the construction schedule and the contractors selected. There may also be opportunities for local provision of construction materials, such as gravel/fill material, and other services related to construction, which could result in increased earnings for suppliers of materials and services locally and in the region.

The contractor would be required to maintain access to businesses throughout the construction period. Because it may be difficult to know how to access a business during construction, the contractor would make provisions for posting appropriate signs to communicate the necessary information to potential customers. The contractor would keep daytime street closures to a minimum.

To reduce the impact of construction activities on neighborhoods and businesses, the following

West Dowling Road Connection Project – November 2007 November 2006 3.13-11 Socio-Economics measures would be incorporated into the construction process:

• The contractor would be required to prepare and implement a traffic access management plan. If temporary closure of local streets would be required during construction, detour routes would be provided and clearly marked. • The contractor would coordinate with the school districts before construction. The traffic access management plan would be implemented and coordinated with all emergency services organizations before or during construction. • The contractor would coordinate with utility providers before construction to identify conflicts and resolve the conflicts before or during construction.

The location of the Office of the Engineer will be announced and clearly identified along with the contact number of the Project Engineer.

Mitigation and Authorizations

DOT&PF would conform to the requirements set forth in accordance with the Civil Rights Act of 1968, the Federal Uniform Relocation Assistance and Real Property Acquisition Policies Act of 1970, as amended and implemented by FHWA under Title 49, Part 24, of the Code of Federal Regulations (CFR), and according to the Alaska Relocation Assistance and Real Property Acquisition Practices, AS 34.60.010 et seq. Adherence to these regulations would ensure just compensation for all properties and have a minimal effect on current owners and residents. Relocation resources would be available, without discrimination, to all eligible residential and business relocations.

The requirements of the Civil Rights Act of 1968 and Executive Order 12898 would be complied with to prohibit discrimination and to mitigation any adverse effects to low income or minority populations.

DOT&PF would prepare a relocation plan in advance of the actual displacements. Additional

3.13-12 West Dowling Road Connection Project – November 2007 November 2006 Socio-Economics information would be collected, possibly through property owner interviews, to identify the specific needs of any business that would be relocated.

The money spent on the acquisition of property would benefit the Anchorage economy, although the amount of private land, and associated property tax revenues, within the MOA would decrease because the ROWs would be converted to public lands. However, property values in the area are expected to increase with improved access and infrastructure; therefore, property taxes assessed on those lands are likely to increase.

Public involvement activities would continue through design and construction with special emphasis on local residents and landowners. Activities done to date include conducting multiple public meetings in the study area and mailing postcards to local residents. For more information on public involvement activities, see Appendix B.

No permits or authorizations would be required.

West Dowling Road Connection Project – November 2007 November 2006 3.13-13 Socio-Economics 3.14 Traffic and Transportation

Existing Conditions

Transportation planning in the MOA is conducted by AMATS. AMATS functions through a What is a Long-Range cooperative, comprehensive, and continuing Transportation Plan? process in which the State of Alaska and the MOA The Safe, Accountable, jointly plan improvement of local roadway, transit, Flexible, Efficient and trail systems. The Anchorage Bowl LRTP Transportation Equity Act: A (DOT&PF, MOA, and AMATS 2005), developed by Legacy for Users (SAFETEA-LU) AMATS, is a key planning document used to requires all Metropolitan Planning Organizations to forecast development and implementation of develop an LRTP. transportation system improvements that will be needed at a horizon point 25 years into the future. The LRTP details how the It also serves as a tool to implement the Anchorage existing transportation system Bowl comprehensive plan (MOA 2001). works and how local residents and decision makers would The MOA 1996 Official Streets and Highways Plan like it to work in the future. (OS&HP) identifies the functional classification of Dowling Road as a major arterial (Class III, The LRTP considers existing Divided) from Lake Otis Parkway to Arctic conditions, local needs, and Boulevard, as shown in Figure 3.3332. Functional anticipated growth to provide classifications group streets and highways the best transportation system according to the character of service that they are possible for all users. intended to provide. However, the existing Dowling Road, between Old Seward Highway and Potter Drive, functions as a local collector road.

As a major arterial, Dowling Road is intended to move large volumes of traffic through the city’s What is the Official Streets and urban area, in addition to serving intra-area travel Highways Plan? The OS&HP is the functional between business districts and residential areas. classification plan used by the Currently, Dowling Road is unable to adequately MOA to classify Anchorage meet either of these functional purposes because it streets (collector, minor/major does not connect directly to the regional roadway arterial, expressway, and grid (Minnesota Drive) on its west end. freeway) by function. The OS&HP is used during land Traffic from Southwest Anchorage to and from the subdivision and development University-Medical District is routed inefficiently, to ensure that an adequate requiring travel on Tudor Road, New Seward amount of ROW is reserved for Highway, Old Seward Highway, C Street, and planned roads. Streets should be designed to serve their Dimond Boulevard. This indirect routing results in respective functions. increased travel time, which is associated with increases in air emissions, fuel consumption, and noise.

West Dowling Road Connection Project – November 2007 November 2006 3.14-1 Traffic and Transportation

West Dowling Road Connection Project

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Feet I Source: Municipality of Anchorage, ADOT | File: Z:\07072 DOT&PF\240 DowlingRoad Ext\Work Products\GIS\MXD\EA OSHP Figure 3.33 32 Expressway Minor Arterial Study Area Lake Freeway Collector Alaska Railroad Park Road Classification from the

Legend Major Arterial Not Classified Stream Official Streets and Highway Plan

3.14-2 West Dowling Road Connection Project – November 2007 November 2006 Traffic and Transportation Traffic volumes for 2004 are shown in Figure 3.3433. In the vicinity of the proposed project, traffic on C Street ranges from approximately What is level of service? 10,000 to 15,000 ADT. Volumes along Arctic Level of service is a term used Boulevard range from 7,000 to 14,000 ADT. Traffic by traffic engineers to along the existing segment of Dowling Road is less measure the performance of than 10,000 ADT. a road or intersection. Much like a report card, level of There is an existing at-grade railroad crossing service is represented by the letters “A” through “F” with on Arctic Boulevard. This crossing is a concern “A” generally representing the for the ARRC because it crosses at an angle most favorable conditions near a curve in the road. Due to the railroad and “F” representing the least tracks, the curve in the road is not banked, desirable. making it harder for vehicles to navigate the curve. When vehicles don’t successfully make the curve, they can slide onto the railroad ROW and potentially damage railroad equipment or interfere with railroad operations.

Environmental Consequences

In the No Action Alternative, only the other projects in the LRTP would be built. Reductions in traffic congestion and level of service would not be fully realized. This alternative does not provide additional east-west connectivity to north-south arterials.

The No Action Alternative also does not improve accessibility to neighborhoods, industrial reserves, and other land uses in the study area. What is the volume-to- capacity ratio? The existing traffic performance will slowly The V/C ratio compares the degrade as traffic volumes increase. Figure 3.3534 volume of traffic using a road shows projected future traffic volumes under the in a given time period to how many cars can be on the No Action Alternative. Traffic volumes along C road in the same time frame. Street increase to approximately 33,000 ADT. The It is used as a way to measure ADT increases to approximately 14,000 along congestion. Arctic Boulevard and approximately 13,000 along Dowling Road. > 1.0 = severe congestion 0.91 to 1.0 = heavy The volume-to-capacity ratio (V/C ratio) for the congestion No Action Alternative is shown in Figure 3.3535. It 0.76 to 0.9 = noticeable compares the amount of vehicles using the road to delays and speed reductions how many vehicles the road is designed to handle. 0.56 to 0.75 = moderate congestion Congestion occurs when the number of vehicles 0.55 = low congestion 0.0 to 0.35 = minimal or no delay

West Dowling Road Connection Project – November 2007 November 2006 3.14-3 Traffic and Transportation

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3.14-4 West Dowling Road Connection Project – November 2007 November 2006 Traffic and Transportation West Dowling Road Connection Project

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West Dowling Road Connection Project – November 2007 November 2006 3.14-5 Traffic and Transportation

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0 0 0 I 0 Feet 0 Source: Municipality Anchorage,of ADOT | File: Z:\07072 DOT&PF\240 DowlingRoad Ext\Work Products\GIS\MXD\EA Volume to Capacity Ratio Figure 3.36 35 0.00 - 0.35 0.76 - 0.90 Local Street Railroad Park 0.36 - 0.55 0.91 - 1.00 Arterial Stream 2025 No Action

Legend 0.56 - 0.75 1.01 - 5.00 Study Area Lake Forecasted V/C Ratio

3.14-6 West Dowling Road Connection Project – November 2007 November 2006 Traffic and Transportation West Dowling Road Connection Project

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Source: Municipality Anchorage,of ADOT | File: Z:\07072 DOT&PF\240 DowlingRoad Ext\Work Products\GIS\MXD\EA 6 Traffic Volumes Local Street Railroad Figure 3.37 36 Arterial Stream 0 - 6,000 24,001 - 36,000 2025 Proposed Action 6,001 - 12,000 36,001 - 50,000 Freeway Lake

Legend 12,001 - 24,000 50,001 - 67,500 Study Area Park Average Daily Traffic Volumes

West Dowling Road Connection Project – November 2007 November 2006 3.14-7 Traffic and Transportation using the road exceeds the amount of vehicles for which the road was designed.

C Street, between International Airport Road and Dimond Boulevard, is reaching capacity. Between International Airport Road and 68th Avenue, C Street is actually over capacity. Potter Drive, between C Street and Dowling Road is also reaching its capacity. In addition, high levels of congestion exist on Tudor Road between Arctic Boulevard and Bragaw Street.

Projected traffic levels with the Proposed Action are shown in Figure 3.3736. Traffic volumes, reported in ADT, reflect the following ranges: C Street, 26,000 to 33,000; Arctic Boulevard, 8,000 to 16,500; and Dowling Road, 19,000 to 25,500.

The V/C ratio for the Proposed Action is shown in Figure 3.3837. With the Proposed Action, congestion would be reduced along C Street, between 68th Avenue and Tudor Road. Between 68th Avenue and Dimond Boulevard, C Street would have a slight increase in congestion. Congestion on Potter Drive between C Street and Dowling Road would be reduced. Congestion would also be reduced on Tudor Road between Minnesota Drive and New Seward Highway. Congestion would increase along Dowling Road, between Potter Drive and Lake Otis Parkway. Old Seward Highway, between Dowling and Tudor Roads, would also experience a slight increase in congestion.

Compared to the No Action Alternative, the Proposed Action has lower system-wide VHT and VMT. VHT would be approximately 1,500 less than for the No Action Alternative, and VMT would be approximately 40,000 less.

Overall, traffic levels along adjacent arterials also would be lower than the projected volumes under the No Action Alternative. Figure 3.3938 shows the difference in ADT between the Proposed Action and the No Action Alternative. Traffic volume would increase along Dowling Road but would decrease along Tudor Road, Dimond Boulevard, and Arctic Boulevard.

3.14-8 West Dowling Road Connection Project – November 2007 November 2006 Traffic and Transportation

West Dowling Road Connection Project

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Legend 0.56 - 0.75 1.01 - 5.00 Study Area Lake Forecasted V/C Ratio

West Dowling Road Connection Project – November 2007 November 2006 3.14-9 Traffic and Transportation West Dowling Road Connection Project

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Legend 1 - 6000 18001 - 24000 Study Area Lake

3.14-10 West Dowling Road Connection Project – November 2007 November 2006 Traffic and Transportation The Proposed Action also facilitates more directional travel by providing additional east-west connectivity.

It is anticipated that railroad crossing signals and gates will be relocated to accommodate the bridge over Arctic Boulevard. The bridge over Arctic Boulevard will be designed to not preclude the possibility of reconfiguring the railroad crossing or relocating Arctic Boulevard in the future.

Construction

Temporary delays and detours would inconvenience the traveling public for short times during construction, but appropriate signage would be used to direct drivers to alternative routes. The public would be notified of road closings and other construction-related activities so that motorists, residents, and business people could plan travel routes in advance. Public notification activities would include notices on the DOT&PF Navigator web site, as well as radio, television, and newspaper announcements. A sign providing the name, address, and telephone of a DOT&PF contact person would be displayed on-site to assist the public in obtaining immediate responses to questions and concerns about project activities.

The contractor would be required to prepare a traffic management plan before making any changes that would affect traffic flow, and the public and service providers would be notified before any changes would be made.

Construction materials and equipment would be required to construct the proposed improvements. These construction-related supplies would need to be trucked to the project site. Trucks would use the public road system to deliver construction materials to the project site. These trucks could result in an increase in construction traffic in the study area. The contractor would be required to develop and implement a DOT&PF-approved construction phasing and traffic control plan containing specifications and restrictions for operations.

West Dowling Road Connection Project – November 2007 November 2006 3.14-11 Traffic and Transportation

Delays to rail traffic are anticipated to be minor. Short-term, intermittent closures of the Alaska Railroad tracks may be required to accommodate construction activities. The contractor would be required to coordinate with the ARRC to ensure that rail disruptions are minimized. The contractor will obtain permission from the Alaska Railroad before performing any work in their ROW.

Mitigation and Authorizations

DOT&PF would coordinate with the Alaska Railroad about the crossing of the tracks near Arctic Boulevard. DOT&PF would coordinate with MOA regarding the intersections with city streets.

The contractor would be required to develop and implement a traffic control plan. It would also be required to minimize conflict with normal traffic when using the traffic control plan. Detours would be coordinated with the MOA and DOT&PF traffic engineers. Any detours or construction activities would be subject to safety and warning requirements imposed by MOA and DOT&PF. The contractor would be required to conform to any seasonal roadway weight restrictions.

DOT&PF would coordinate efforts with MOA about the realignment of 68th Avenue and design of the Arctic Boulevard connector.

DOT&PF would coordinate with the Alaska Railroad regarding the bridge crossing the railroad tracks.

The contractor would prepare a traffic management plan before making any changes to the traffic flow. The public, school districts, and emergency service providers would be informed of the changes ahead of time through a public information process.

Traffic and vehicle speeds would be reduced in areas of construction.

The public would be notified of road closings and other construction-related activities so that

3.14-12 West Dowling Road Connection Project – November 2007 November 2006 Traffic and Transportation motorists, residents, and business people could plan travel routes in advance. A sign providing the name, address, and telephone of a DOT&PF contact person would be displayed on-site to assist the public in obtaining immediate responses to questions and concerns about project activities.

West Dowling Road Connection Project – November 2007 November 2006 3.14-13 Traffic and Transportation 3.15 Noise

Existing Conditions

Existing noise sources in the project area include roadway traffic, aircraft overflights, railroad operations, and local neighborhood activities, Refer to the West Dowling including industrial noise, train whistles, and Road Connection Project gravel operations. Highway Traffic Noise Assessment in Appendix H for a complete discussion of the The project team measured existing noise levels at noise analysis two representative sites in the study area (see Figure 3.40). The existing noise levels are shown in Table 3.9.

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Table 3.9. Summary of Existing Ambient Noise Measurement Results Site Description Peak Morning L eq(h) (dB[A]) 242-248 Potter Drive 69 Dead end at Chad St. and 60 Graham Circle Source: HDR 2006c

West Dowling Road Connection Project – November 2007 November 2006 3.15-1 Noise Environmental Consequences

The project team used the FHWA Traffic Noise Model (TNM) to estimate traffic noise levels. To evaluate levels in the project area, the project team obtained field measurements of current traffic noise levels and current traffic volumes. TNM was used to evaluate future noise levels.

The FHWA established Noise Abatement Criteria (NAC) to help determine the noise impacts associated with highway development projects. The NAC are noise levels assigned to various land uses (such as picnic areas, churches, commercial land, and undeveloped land) grouped by their sensitivity to traffic noise levels. The NAC represent the maximum traffic noise levels that allow uninterrupted use within each activity category.

Table 3.10 lists the five land activity categories included in the FHWA-established NAC and the average sound level (occurring over a 1-hour

period, or Leq[h]) associated with each activity category. Sound levels are reported in decibels using the A-weighted scale1 (dB[A]). Figure 3.41 shows the location of the modeled noise-sensitive receivers within the study area.

1 Because human hearing is not equally sensitive to all frequencies of sound, certain frequencies are given more "weight". The A-weighted scale corresponds to the sensitivity range for human hearing.

3.15-2 West Dowling Road Connection Project – November 2007 November 2006 Noise West Dowling Road Connection Project

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West Dowling Road Connection Project – November 2007 November 2006 3.15-3 Noise

Table 3.10. Noise Abatement Criteria

Activity L eq(h) Description of Activity Category (dB[A]) Category A 57 Lands on which (Exterior) serenity and quiet are of extraordinary significance and serve an important public need and where the preservation of those qualities is essential if the area is to continue to serve its intended purpose. B 67 Picnic areas, (Exterior) recreation areas, playgrounds, active sports areas, parks, residences, motels, hotels, schools, churches, libraries, and hospitals. C 72 Developed lands, (Exterior) properties, or activities not included in Categories A or B above. D No limit Undeveloped lands. E 52 Residences, motels, (Interior) hotels, public meeting rooms, schools, churches, libraries, hospitals, and auditoriums. Source: FHWA, Procedures for Abatement of Highway Traffic Noise and Construction Noise, Federal-Aid Highway Program Manual 7-7-3, August 1982.

In their noise policy, DOT&PF states that "the commitment to minimize noise impacts and enhance the noise environment must be fulfilled through prudent application of FHWA's noise regulations - 23 CFR Part 772, which is the primary regulatory authority regarding noise abatement criteria" (DOT&PF 1996) According to FHWA regulation and DOT&PF policy (DOT&PF 1996), traffic noise impact occurs when the predicted noise levels on new roadway corridors meet one of the following:

3.15-4 West Dowling Road Connection Project – November 2007 November 2006 Noise

• Approach (are within 2 dB[A] of) or What are sensitive receivers? exceed the NAC Sensitive noise receivers • Substantially exceed (by 10 dB[A] or represent all land use activity more) the existing noise level categories for which FHWA noise abatement criteria specify exterior and interior If s noise impact (approaching or exceeding the noise levels. Land use activity NAC) is identified, FHWA regulations and categories include DOT&PF policy indicate that abatement should be residences, recreation areas, considered. hotels, schools, churches, libraries, and hospitals. Noise mitigation design would be incorporated into the proposed project if it were determined that noise impacts would be created by the project and that abatement measures are considered reasonable and feasible according to DOT&PF Noise Policy.

Table 3.11 shows the results of the noise analysis. TNM showed that 43 of the 55 modeled noise receivers would have a noise level approaching or above the NAC for the applicable category. However, most of the modeled receivers are expected to exceed their acceptable NAC under the No Action Alternative.

Table 3.11 Morning Peak-Hour Noise Analysis Results Difference 2031 2031 Between Predicted 2005 No- Proposed 2031 No- Impact of Existing Action Action Noise Action 2031 Noise Noise Noise Abatement and 2031 Proposed Receiver Residential/ Level Level Level Criteria Proposed Action? ID Commercial (dB[A]) (dB[A]) (dB[A]) (dB[A]) Action Relocation (Yes/No) DR1 Residential 66 67 74 65 +7 Yes No DR2 Residential 69 70 78 65 +8 Yes No DR3 Residential 65 65 73 65 +7 Yes No DR4 Residential 68 69 80 65 +11 Yes No DR5 Residential 68 69 80 65 +11 Yes No DR6 Residential 68 69 79 65 +10 Yes No DR7 Residential 62 66 71 65 +5 No Yes DR8 Residential 64 69 66 65 -3 No Yes DR9 Residential 66 71 65 65 -6 No Yes DR10 Residential 67 70 65 65 -5 No Yes DR11 Residential 70 70 68 65 -2 No Yes

West Dowling Road Connection Project – November 2007 November 2006 3.15-5 Noise Difference 2031 2031 Between Predicted 2005 No- Proposed 2031 No- Impact of Existing Action Action Noise Action 2031 Noise Noise Noise Abatement and 2031 Proposed Receiver Residential/ Level Level Level Criteria Proposed Action? ID Commercial (dB[A]) (dB[A]) (dB[A]) (dB[A]) Action Relocation (Yes/No) DRM Residential 69 70 68 65 -2 No Yes DR13 Residential 65 66 67 65 1 No Yes DR14 Residential 65 66 66 65 0 No Yes DR15 Residential 72 73 71 65 -2 No Yes DR16 Commerci 71 72 74 70 +2 Yes No al DR17 Residential 72 74 66 65 -8 No Yes DR18 Residential 66 67 61 65 -6 No No DR19 Residential 67 68 61 65 -7 No No DR20 Residential 70 71 64 65 -7 No No DR21 Residential 68 69 62 65 -7 No No DR22 Residential 68 69 62 65 -7 No No RR1 Residential 62 75 71 65 -4 No Yes RR2 Residential 63 76 69 65 -7 No Yes RR3 Residential 60 73 66 65 -3 No Yes RR4 Residential 61 74 65 65 -9 No Yes RR5 Residential 60 74 66 65 -8 No Yes RR6 Residential 61 74 67 65 -7 No Yes RR7 Residential 62 76 69 65 -7 No Yes RR8 Residential 63 76 72 65 -4 No Yes RR9 Residential 60 73 73 65 0 No Yes RR10 Residential 59 72 73 65 +1 No Yes RR11 Residential 59 72 73 65 +1 No Yes RR12 Residential 59 72 74 65 +2 No Yes RR13 Residential 60 73 74 65 +1 No Yes RR14 Residential 60 66 69 65 +3 No Yes RR15 Residential 53 64 66 65 +2 No Yes RR16 Residential 51 63 66 65 +3 No Yes RR17 Residential 51 63 66 65 +3 No Yes RR18 Residential 51 63 66 65 +3 No Yes RR19 Residential 51 63 65 65 +2 No Yes RR20 Residential 51 63 65 65 +2 No Yes RR21 Residential 51 64 65 65 +1 No Yes

3.15-6 West Dowling Road Connection Project – November 2007 November 2006 Noise Difference 2031 2031 Between Predicted 2005 No- Proposed 2031 No- Impact of Existing Action Action Noise Action 2031 Noise Noise Noise Abatement and 2031 Proposed Receiver Residential/ Level Level Level Criteria Proposed Action? ID Commercial (dB[A]) (dB[A]) (dB[A]) (dB[A]) Action Relocation (Yes/No) RR22 Residential 52 65 67 65 +2 No Yes RR23 Residential 54 66 67 65 +1 No Yes RR24 Residential 51 63 62 65 -1 No Yes RR25 Residential 51 63 62 65 -1 No Yes RR26 Residential 52 65 63 65 -2 No Yes RR27 Residential 54 66 65 65 -1 No Yes RR28 Residential 55 67 68 65 +1 No Yes RR29 Residential 52 65 63 65 -2 No Yes RR30 Residential 50 63 60 65 -3 No Yes RR31 Residential 50 63 64 65 +1 No Yes RR32 Residential 48 60 61 65 +1 No Yes RR33 Residential 49 62 61 65 -1 No Yes Source: HDR 2006c. Bold text indicates a noise level above the appropriate abatement criteria.

Construction

Noise and vibration impacts would result from heavy equipment movement and construction activities such as pile driving and vibratory compaction of the embankments. Construction noise would be minor and temporary in duration.

Mitigation and Authorizations

For all locations that exceeded the FHWA and DOT&PF criteria, the effectiveness of noise barriers was evaluated. To include a noise barrier in a project, the barrier must be feasible and reasonable. To be considered feasible, a noise barrier must be achieve a reduction of at least 5 dB(A) at most of the first row of sensitive receivers. To be reasonable, the barrier must be wanted by the owners of the sensitive receivers, and must be cost-effective. The allowable cost per square foot, as established in the DOT&PF Noise Policy, is $31.

West Dowling Road Connection Project – November 2007 November 2006 3.15-7 Noise

A noise barrier may interfere with the passage of air, interrupt scenic views, create objectionable shadows, contribute to increased road icing, and reduce or eliminate visibility of a business from the roadway. Noise barriers could also increase snow removal costs, cause maintenance access problems, make it difficult to maintain landscaping, create drainage problems, and provide pockets in which trash and garbage might accumulate. Depending on location, noise barriers could also compromise traffic safety by reducing stopping or merging sight distance, or by reducing errant vehicle recovery room.

Noise barriers would not be effective are not possible along the existing Dowling Road because of the need to maintain driveway access. The driveways would create breaks in the noise barrier and reduce its effectiveness. A noise barrier is recommended along 68th Avenue, provided that adjacent residents agree and that barrier construction is feasible from an engineering perspective. The location of the noise barrier is shown in Figure 3.42.

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Figure 3.42 Proposed Noise Barrier Location The noise analysis shows that 31 of the 33 receivers along 68th Avenue are anticipated to

3.15-8 West Dowling Road Connection Project – November 2007 November 2006 Noise experience a noise reduction of 5dB(A) or more. The remaining two receivers would receive a noise level reduction of less than 5dB(A). Figure 3.43 shows the benefits of the noise barrier at the dead end at Chad Street and Graham Circle.

80 70 Residential 60 Abatement 50 Criteria 40 30 Leq(h) dB[A] Leq(h) 20 10 0 Existing 2031 No 2031 2031 Build Proposed Proposed Project Project WITHOUT WITH Noise Noise Wall Wall

Figure 3.43 Existing and Future Noise Levels at Chad Street

These noise mitigation recommendations are based on conceptual engineering, traffic data, and current noise models, regulations and policies. Final noise abatement recommendations will be made after a thorough reevaluation of the noise study conducted during the design phase of this project.

To minimize construction noise, DOT&PF would require the contractor to maintain all equipment. All construction vehicles and equipment would be requiredes to have mufflers equivalent to or better than manufacturers specifications.

DOT&PF would require the contractor to locate stationary equipment away from residential areas when feasible.

In addition, the contractor would be required to comply with the MOA noise ordinance. An MOA Noise Permit would be required if the contractor wanted to work at night (between 10PM and 67AM), on Sundays, or on holidays.

West Dowling Road Connection Project – November 2007 November 2006 3.15-9 Noise 3.16 Archeology and Historic Preservation

Existing Conditions

As a federally funded project, the Proposed Action is subject to the review process of Section 106 of the NHPA (36 CFR 800) and the Alaska Historic Preservation Act. Section 106 requires federal agencies to define and document the Area of Potential Effects (APE) for proposed projects in consultation with the State Historic Preservation Office. The APE for the West Dowling Road Connection Project is largely defined by the project slope limits and the anticipated right-of-way limit. The APE is depicted in Figure 1 attached to the August 3, 2006 letter from FHWA to SHPO (located in Appendix I). The consulting parties were the SHPO and Anchorage Historical Properties.

Cultural Resource Consultants LLC conducted a review of land records and other historical For more information, see the Cultural Resource Consultants documents, including the files of the Alaska report in Appendix I. Heritage Resources Survey (AHRS). The goal of this review was to determine whether any historic properties that are eligible for the National Register of Historic Places are in the project area.

The review found that the only known historic site in the general study area listed in the AHRS is What is Section 106? Campbell Station (ANC-011). This former wood- Section 106 of the National frame Alaska Railroad flag stop station, built in the Historic Properties Act late 1930s, was located west of Tina Lake, at the requires federal agencies to intersection of Arctic Boulevard and the Alaska consider the effects of their Railroad. The station was demolished in 1976. undertakings on sites that are on or eligible for the National Not recorded in the AHRS, but illustrated on a Register of Historic Places and to provide the Advisory 1917 rectangular USGS survey incorporating the Council on Historic proposed project area are the Alaska Railroad, a Preservation an opportunity government pack trail/wagon road, a telephone line to comment on those parallel to the railroad tracks, a “trail to effects. Anchorage,” and an abandoned U.S. railroad ROW. None of these features appear to exist today. Thus, no eligible historic properties are located within the proposed project area.

West Dowling Road Connection Project – November 2007 November 2006 3.16-1 Archeology and Historic Preservation A review of building records indicated that there are four ranch-style houses along the existing Dowling Road that are at least 45 years old, two of which are over 50 years of age (CRC 2006). Subsequently, research and documentation was prepared by Cultural Resource Consultants on these four houses to determine potential eligibility for listing in the National Register. The results of this research recommended that these four properties are not eligible, either individually or as part of a larger district (CRC 2006).

Environmental Consequences

Based on the cultural resource survey, FHWA determined that no No archaeological or historic properties would be affected by the No Action Alternative or the Proposed Action. SHPO concurred with that determination on April 12, 2007.

Letters of concurrence about the area of potential effect and on the finding of No Historic Properties Affected from the SHPO are included in Appendix I F.

Construction

No construction impacts are anticipated.

Mitigation and Authorizations

If construction activities unearth any archaeological or historic resources, construction would be stopped in the immediate vicinity and the SHPO would be consulted. Work would not resume in the area until the non-objection of the SHPO was received or the expedited Section 106 consultations process for discoveries during construction is completed. No other mitigation is proposed.

3.16-2 West Dowling Road Connection Project – November 2007 November 2006 Archeology and Historic Preservation 3.17 Recreation Resources

Existing Conditions

The only recreation resource in the study area is the Campbell Creek Greenbelt. The Campbell Creek Greenbelt runs north-south through Anchorage For more information, please following Campbell Creek and perpendicular to refer to the Programmatic Dowling Road across the project area. The Section 4(f) Evaluation. Campbell Creek Greenbelt consists of a series of parks. In the project area, the greenbelt consists of Foxtree Park and Lynwood Park. Figure 3.4443 shows recreation resources in the project area. The Campbell Creek Greenbelt is a Section 4(f) resource.

Campbell Creek Trail is located adjacent to Campbell Creek in the Campbell Creek Greenbelt The Campbell Creek Trail is a multi-use paved trail What is Section 4(f)? intended for nonmotorized uses, including The Section 4(f) legislation as established under the bicycling, jogging, skating, cross-country skiing, Department of Transportation and skijoring. The trail currently crosses Dowling Act of 1966 (49 U.S. Code 303, Road at grade just east of the Campbell Creek 23 USC 138) provides bridge because the bridge is too low to allow protection for publicly owned enough headroom for the trail to pass under the parks, recreation areas, road. historic sites, wildlife, and/or waterfowl refuges from Other roadside trails in the area—along C Street, conversion to a transportation Dowling Road, Old Seward Highway, Raspberry use. FHWA may not approve Road, and Arctic Boulevard—are considered a the use of land from a significant publicly owned transportation resource instead of a recreation park, recreation area, or resource and are not discussed here. wildlife and waterfowl refuge or any significant historic site The Campbell Creek Greenbelt falls under the Land unless the following and Water Conservation Grant program, a federally determination is made: administered program that is intended to protect • There is no feasible lands acquired or developed with the grant funds in and prudent perpetuity. These properties are commonly known alternative to the use as Section 6(f) properties and are discussed in more of land from the property; and detail later in this section. • The action includes all possible planning to minimize harm to the property resulting from such use (23 CFR 771.135).

West Dowling Road Connection Project – November 2007 November 2006 3.17-1 Recreation Resources West Dowling Road Connection Project

Taku School Park Old S e w a r d H w y

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Study Area Local Street Stream Figure 3.44 43 Railroad Arterial Lake Recreation Resources Freeway Park Legend

3.17-2 West Dowling Road Connection Project – November 2007 November 2006 Recreation Resources Environmental Consequences What is 6(f)? Section 6(f) of the Land and The No Action Alternative would have no impact Water Conservation Fund Act on recreation resources. The at-grade crossing of (LWCF) concerns Dowling Road on Campbell Creek Trail would transportation projects that remain. Pedestrians and bicyclists would continue propose impacts, or the permanent conversion, of to cross Dowling Road at grade. outdoor recreation property that was acquired or The Proposed Action would have a positive impact developed with LWCFA grant on recreation resources. The Proposed Action assistance. The Act prohibits includes a bridge that is wider, longer, and has the conversion of property more clearance than the existing bridge. acquired or developed with these grants to a non- Increasing the elevation of the bridge is necessary recreational purpose without to allow the Campbell Creek Trail to cross under the approval of the National Dowling Road. To maintain acceptable grades, the Park Service.

bridge needs to be longer. A longer replacement These properties may be bridge would not fit in the existing footprint. converted to a non-outdoor recreational use only if At the request of the MOA Parks and Recreation replacement recreation land Department, connections between the roadside of at least equal fair market pathways and the Campbell Creek Greenbelt would value and or reasonably be included in the Proposed Action. Figure 3.4544 equivalent usefulness and shows the cross section of the proposed Campbell location is assured. Creek bridge.

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Figure 3.4544 Cross Section of the Campbell Creek Trail Crossing

To accommodate the larger bridge footprint, the Proposed Action would use approximately 0.21 acre of the Greenbelt (0.11 acre from Foxtree Park and 0.08 0.10 acre from Lynwood Park). The trail connections would use approximately 0.37 acre of Campbell Creek Greenbelt. Figure 3.4645 shows the portion of the greenbelt proposed for use in the project.

West Dowling Road Connection Project – November 2007 November 2006 3.17-3 Recreation Resources

FHWA guidelines prevent Section 4(f) properties from being used for transportation projects unless there is no feasible and prudent alternative.

To avoid any use of Section 4(f) properties, the bridge over Campbell Creek would have to be built within the existing ROW. While this could be accomplished by reducing the width of the bridge

Dowling Road

Legend New Bridge over the Project Centerline Campbell Creek Trail Stream Cut/Fill Footprint Park I Road Impact Bridge 0250125 Trail Feet

Figure 3.4645 Impacts to the Campbell Creek Greenbelt so it is narrow enough to fit within the existing ROW, such a design is not recommended as it would miss an opportunity to benefit the park. This design would result in a bridge that is approximately 83 feet wide and 100 feet long. With this width, the bridge would consist of 4 12-foot travel lanes, a 4-foot median, a 6-foot sidewalk and an 8-foot pathway making it inconsistent with the rest of Dowling Road. An inconsistent roadway tends to reduce driver comfort and has a relatively higher crash rate. The bridge would have a reduced capacity compared to the rest of the roadway. DOT&PF would be unable to increase the capacity of the roadway in the future without replacing the bridge.

On the bridge, the shoulders would be the minimum allowed by DOT&PF standards. There would be no separation between the shoulder and

3.17-4 West Dowling Road Connection Project – November 2007 November 2006 Recreation Resources the sidewalk/pathway which would create a less pedestrian friendly environment as pedestrians would be much closer to the passing traffic.

Minimal shoulders do not provide adequate width for vehicles to stop without blocking traffic, bicycle use, bus stops, or the detouring of traffic during construction or maintenance activities. They reduce the amount of space drivers have for evasive maneuvers to avoid crashes. Minimal shoulders reduce the space available for snow storage. They also reduce the sight distance which tends to reduce safety. Drivers will have less warning of hazards such as trail users and wildlife crossing the road. Moose and other large wildlife would continue to cross the road at-grade because they are unable to cross under the bridge.

Left turns onto Austin Street would be prohibited as the median would not be wide enough to accommodate a turn pocket. Turning vehicles would block the traffic creating a safety concern.

To prevent fill from being placed in Lynwood Park, a wall would need to be built on the southwest quadrant. To minimize the amount of wall to be built, this bridge would only have 5-feet of clearance which is not enough for a grade-separated Campbell Creek Trail crossing. In other words, the continuous trail connection under the bridge would not be made and the benefits to the park would be foregone.

A narrower bridge might be feasible but it is not prudent because a narrower bridge does not meet all the transportation needs of the project and it misses an opportunity to benefit a recreation resource. A narrower bridge is not preferred by MOA Parks and Recreation, the owner of Section 4(f) resource, because it has found that bridge and trail improvements would be a benefit to the Campbell Creek Greenbelt and adjacent parks.

MOA Parks and Recreation agrees that this use of the Section 4(f) property would result in a net benefit to the property. For a more detailed discussion of the use of the Campbell Creek

West Dowling Road Connection Project – November 2007 November 2006 3.17-5 Recreation Resources Greenbelt, please see the Programmatic Section 4(f) Evaluation in Section 7.

The section of the Campbell Creek Greenbelt that What is a Use? A “use” occurs (1) when land would be in the proposed project area is a 6(f) from a Section 4(f) site is property. The LWCF Act prohibits the conversion acquired for a transportation of properties acquired or developed with these project, (2) when there is an funds to a non-recreational use without the occupancy of land that is approval of the National Park Service. To allow adverse in terms of the DOT&PF to convert this property, replacement statute's preservationist land of equal value, location, and usefulness must purposes, or (3) when the be provided. The proposed replacement property is proximity impacts of the discussed in the mitigation and authorizations transportation project on the section. Section 4(f) sites, without acquisition of land, are so great that the purposes for The Proposed Action is consistent with the July which the Section 4(f) site 2004 Statewide Comprehensive Outdoor Recreation exists are substantially Plan. One goal of the plan is to support efforts to impaired (normally referred to assist communities in meeting the outdoor as a constructive use). recreation needs of their citizens. MOA Parks and Recreation supports the project and the grade- separated trail crossing.

By grade-separating the trail, users of the greenbelt would be less likely to be affected by visual and/or noise impacts associated with the road. The grade separation would also increase the safety of trail users.

Construction

Construction activities are expected to require temporary closures of the Campbell Creek Trail. Because of safety concerns, recreational use would not be possible at times when heavy equipment is present.

Pedestrian detours would be established and maintained as part of the construction phasing and traffic control plan.

Mitigation and Authorizations

The proposed bridge is being designed to enhance the trail in the Campbell Creek Greenbelt. The project would provide trail connections to the Campbell Creek Trail from the multi-use pathway

3.17-6 West Dowling Road Connection Project – November 2007 November 2006 Recreation Resources and the sidewalk. These trail connections would help implement the MOA Areawide Trails Plan (1997). The trail would allow bikers and pedestrians to stay off the road and on the trail.

Incorporating the grade-separated crossing into the Proposed Action would result in a mutual net benefit for DOT&PF and the Campbell Creek Greenbelt.

No net loss of parkland would result from the Proposed Action. The amount of Section 4(f)/6(f) land used by the Proposed Action (approximately 0.210.37 acre) would be replaced.

The proposed mitigation site is part of the parcel located on the north side of Dowling Road and is adjacent to Foxtree Park. This property currently has two apartment buildings. The Proposed Action would acquire the building closest to Dowling Road. DOT&PF would acquire part of this parcel and convert it to a city street to provide access to the second apartment building. The remainder of the acquired portion of the parcel (approximately 0.5 acre) would be converted to a trailhead. According to property values in the area, the value of the replacement property is approximately $50,000. Figure 3.4746 shows the location of the proposed mitigation property and the trailhead.

Proposed 6(f) New MOA Mitigation Street

Legend Dowling Road Project Centerline Stream Area of Construction Park New Bridge over the Campbell Creek Trail Road Impact Bridge Proposed Mitigation I Trailhead Trail 0250125 Proposed Street Feet

Figure 3.4746 Proposed Section 6(f) Mitigation

West Dowling Road Connection Project – November 2007 November 2006 3.17-7 Recreation Resources

DOT&PF would continue coordination with MOA Parks and Recreation to ensure the Campbell Creek bridge and associated trails meet the appropriate standards.

DOT&PF has been coordinating with MOA Parks and Recreation as well as the ADNR LWCF coordinator about the replacement 6(f) lands. Coordination would continue throughout the project.

3.17-8 West Dowling Road Connection Project – November 2007 November 2006 Recreation Resources 3.18 Utilities

Existing Conditions

Multiple sewer, water, gas mains, and overhead and buried electrical, lighting, and communication utilities exist in the study area. These utilities are transmitted by above- and below-ground lines. The Anchorage Water and Wastewater Utility (AWWU) provides the water distribution and the wastewater collection systems in the study area. Chugach Electric Association (CEA) provides electricity, and Enstar Natural Gas Company provides natural gas. General Communications Inc. (GCI) and Alaska Communications Systems (ACS) provide telephone service. GCI also provides cable television service. WCI FiberStar operates fiber optic cable in the study area.

CEA has an overhead transmission line along the Dowling Road section line. This transmission line is made up of a 138-kilovolt (kV), two 34.5-kV and a single 277/480-volt (V) line. A 138-kV line connects the CEA International Substation with the South Anchorage Substation following the Dowling CEA transmission line crossing Road section line and the Alaska Railroad tracks. Tina Lake. Figure 3.4847 shows the CEA facilities in the study area.

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Figure 3.4847 Known Chugach Electric Facilities in the Study Area

West Dowling Road Connection Project – November 2007 November 2006 3.18-1 Utilities AWWU has numerous water and waste water lines in the study area. The largest sewer pipe in the area is a 78-inch sewer pipe running along the 76th Avenue corridor between Minnesota Drive and C Street. A 48-inch pipe also follows the edge of the Campbell Creek Greenbelt. Figure 3.4948 shows the location of other sewer pipes in the study area. The largest water pipe in the study area is a 16-inch pipe that runs along Dowling Road between A Street and the Lake Otis Parkway. The location of water pipes in the study area is shown in Figure 3.5049.

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Figure 3.4948 AWWU Sewer Pipes in the Study Area

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Figure 3.5049 AWWU Water Pipes in the Study Area 3.18-2 West Dowling Road Connection Project – November 2007 November 2006 Utilities

Enstar Natural Gas has transmission, main and service lines in the study area. A transmission line runs along the Dowling Road section line easement and along the Rovenna Street ROW. Figure 3.5150 shows the location of gas lines in the study area.

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GCI and ACS have underground and aerial telecommunications lines in the study area. GCI has an aerial line on the south side of the railroad corridor, along with two buried fiber optic cables and an aerial line in the Arctic Boulevard ROW.

GCI also has an aerial pole line on the west side of C Street, an aerial and a fiber optic cables at A Street, an aerial line at Austin Street east of Campbell Creek, and aerial lines and a fiber optic cable at Old Seward Highway

ACS has an aerial line serving the subdivisions between Chad, Cheryl, and Rovenna streets. It has two 4-inch conduits crossing under the Rovenna Street ROW, and one buried 4-inch conduit and an aerial line for the NAPA Distribution Center.

ACS has aerial lines on the south side of the railroad corridor and the west side of the Arctic

West Dowling Road Connection Project – November 2007 November 2006 3.18-3 Utilities Boulevard ROW. It also has a line along Dowling Road between A Street and Old Seward Highway.

WCI FiberStar has a fiber optic cable buried along the north side of the railroad tracks through the project corridor.

Environmental Consequences

The No Action Alternative would have no impacts on utilities.

The Proposed Action would require the relocation of some utilities. For the proposed project, several CEA poles on the 120/240-V and 120/280-V line would likely need to be relocated to provide clearance for the grade-separated crossing of Arctic Boulevard and the railroad. Other lines and poles may need to be relocated. Several service drops also would need to be relocated during construction.

A service drop is the It is not anticipated that the main transmission line electrical service line that would be relocated; however, some poles may need runs from a utility to be shifted to a new location along the same distribution cable into a alignment. customer's home or place of business. No relocation of AWWU water pipes is anticipated, given the pipe depth. The utility may want to provide extensions and crossings for future use.

The AWWU wastewater line from C Street to Campbell Creek may have to be replaced. The utility may want to provide extensions and crossings for future use.

No impacts to the Enstar gas line from Arctic Boulevard to just past Campbell Creek are anticipated.

The ACS and GCI aerial lines at Arctic Boulevard and the railroad would have to be elevated where the new grade-separated alignment crosses. The utilities may want to provide extensions and crossings for future use.

No impact to the WCI fiber optic cable is anticipated.

3.18-4 West Dowling Road Connection Project – November 2007 November 2006 Utilities

Construction

The contractor would coordinate with utility providers before construction to identify conflicts and resolve the conflicts before or during construction. Utility disruptions would be minimized by timing work and outages to nonpeak periods. Utility customers would be notified in advance of any scheduled service disruptions.

During construction, utility relocations would occur. This would result in vegetation clearing and excavation activities throughout the project corridor.

Potential utility conflicts within DOT&PF ROW would be relocated before construction.

Mitigation and Authorities

Design and construction would be coordinated with appropriate utility companies. Efforts would be made to minimize the utility disruptions by timing work and outages to low-use time periods. Residents and other utility customers would be notified in advance of construction activities requiring temporary service interruptions.

Design and construction would be coordinated with the appropriate utility provider. Utility disruptions would be minimized by timing work and outages to nonpeak periods. Utility customers would be notified in advance of any scheduled service disruptions.

West Dowling Road Connection Project – November 2007 November 2006 3.18-5 Utilities 3.19 Contaminated Sites

Existing Conditions

Contaminated sites can be encountered during the construction and operation of public projects. Without proper treatment, removal, and containment, these materials may present a danger to human health and the environment. The identification of known and potential contaminated For more information, refer sites is important because it can reduce the to the Initial Site possibility of exposure. Assessment in Appendix J.

To identify known or potential contamination, an Initial Site Assessment (ISA) of the study area was conducted (Shannon & Wilson 2004). An addendum was added in October 2005 to provide additional information about the potential environmental impacts associated with the sites identified in the ISA. The ISA included records review, environmental database review, site visits, and personal interviews. Records review included aerial photographs, lease histories, utility history, and the 1991 site assessment of the ARRC headquarters building. The databases reviewed included the Underground Storage Tank (UST) Database, the Leaking Underground Storage Tank (LUST) Database, and the Contaminated Sites Database as well as the EPA Databases and the Anchorage Fire Department Hazardous Conditions List.

Potentially Contaminated Sites

Three contaminated sites are known to exist within the proposed project ROW. The sites are listed in Table 3.12 and shown in Figure 3.5251.

Table 3.12. Contaminated Sites Site Number Property 1 6400 Rovenna Street 2 6800 Arctic Blvd 3 6831 Arctic Blvd. Source: Shannon & Wilson 2005

West Dowling Road Connection Project – November 2007 November 2006 3.19-1 Contaminated Sites O ld ld

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Site 1 is the former Alaska Seafood International property. Petroleum hydrocarbon, solvent, or both contaminants were found in one or more of the soil, surface water, and groundwater. ADEC has not closed the site and considers the cleanup and assessment of the site to be ongoing. The affected soil has been excavated and removed from the site. Recent borings/wells also indicate that affected groundwater and soils are no longer present (Shannon & Wilson 2005).

Site 2 has contaminated soils associated with diesel, leaded gasoline, and unleaded gasoline tanks. The affected soil was excavated and stockpiled onsite. Sampling of the stockpile indicated that the contaminant concentrations are less than the applicable cleanup levels. The site has been given “Site Closure” status by ADEC (Shannon & Wilson 2005).

Site 3 has contaminated soil associated with a 5,000-gallon diesel tank. The affected soil is no longer present, and ADEC has given the tank site a ”No Further Action” status. As a result, it is unlikely that this release would affect the proposed project. Contaminated soil was also encountered during the removal of a heating oil tank. Groundwater samples contained diesel-range

3.19-2 West Dowling Road Connection Project – November 2007 November 2006 Contaminated Sites organics (DRO), benzene, or both in excess of the applicable cleanup levels. The groundwater flow direction is to the south, and it is unlikely that this contaminated site would affect the proposed project (Shannon & Wilson 2005).

Three other sites in the study area are known to contain USTs and LUSTs. Figure 3.5352 shows these site locations.

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Figure 3.5352 UST and LUST Sites

The Tesoro station, at 6010 Old Seward Highway is known to have two 12,000-gallon gasoline USTs. This location is also a LUST site. Groundwater contamination has been documented migrating off- What is a Residual Range site into the ROW and onto the parcel to the north. Organic? Groundwater samples taken in March 2005 indicate According to 18 AAC 78/995, that the groundwater affected with DRO, gasoline RRO is a heavy-range range organics, and aromatic volatile organics is petroleum product, which present south of Dowling Road, within the ROW. may include lubricating oil. RRO products cover Groundwater affected with residual range organics petroleum hydrocarbon (RRO) is also present west of Old Seward Highway compounds corresponding to in the ROW area. In this area, groundwater is an alkaline range from the generally between 17 and 28 feet below the surface. beginning of n-pentacosane (C25) to the beginning of The World Equipment, Inc., site, formerly known n-hextriacontaine (C36) and as Denali Fuel, is located at 6029 McKay Street. having a boiling point range According to ADEC records, this location is a UST between approximately 400 site. An 8,000-gallon diesel UST was reported to and 500 degrees Centigrade. have been removed in 1992. However, the UST was

West Dowling Road Connection Project – November 2007 November 2006 3.19-3 Contaminated Sites not properly registered or decommissioned with ADEC. Information regarding tank closure of site assessment activities was not available (Shannon & Wilson 2005).

Alaska Steel, located at 1200 West Dowling Road, is listed as a UST site. One 1,000-gallon diesel UST was removed from the site in 1998. ADEC records do not indicate whether site assessment activities were conducted during the UST closure activities (Shannon & Wilson 2005).

Because the study area is located in an industrial area, unknown contaminated sites may exist.

Hazardous Materials in Tina Lake

Because Tina Lake is surrounded by industrial land uses, hazardous material in the lake has been identified as a potential concern. In September 2005, two sediment samples (S1 and S2) and two surface water samples (W1 and W2) were taken from Tina Lake. Table 3.13 summarizes the contamination found in Tina Lake. The sediment samples revealed that the arsenic and chromium levels were present in levels above the applicable cleanup levels. These concentrations are within the range of naturally occurring levels within Anchorage. At one site, low levels of petroleum hydrocarbons were detected. There is potential for higher levels of petroleum hydrocarbons in the fill material on the northern side of the lake.

One surface water sample contained an RRO concentration level that is greater than the applicable cleanup level.

Table 3.13 Summary of Contamination in Tina Lake Sample Number Contaminant Cleanup Level (ppm) S1 S2 W1 W2 Soil/Water RRO – ppm 11,000/1.1 117 1,030 0.701 2.39 Arsenic - ppm 2/0.05 2.23 2.55 N/A N/A Chromium – ppm 26/0.1 27.5 28.5 N/A N/A Source: Shannon & Wilson 2005 ppm = parts per million Bold text indicates a level above the applicable cleanup level.

3.19-4 West Dowling Road Connection Project – November 2007 November 2006 Contaminated Sites

Environmental Consequences

No known contaminated sites would be affected by the No Action Alternative.

The three known contaminated sites in the study area are unlikely to be affected the Proposed Action. These known contaminated sites have already been cleaned up enough so that they are not anticipated to be affected by the Proposed Action (Shannon & Wilson 2005).

The Proposed Action would acquire a small amount of ROW along the northern edge of the Tesoro property (approximately 0.02 acre). No relocation of the USTs is anticipated. Although possible, it is unlikely that the Proposed Action would encounter affected soil, groundwater, or both at this site (Shannon & Wilson 2005).

Under the Proposed Action, acquisition of any ROW from the World Equipment, Inc., or the Alaska Steel properties is not anticipated. Therefore, any potential contamination should not affect the Proposed Action. What is a Site For many years, several properties adjacent to Tina Investigation? Lake have been used for industrial purposes, A Site Investigation including car storage. It is expected that fluids such evaluates a property for as gasoline, oil, or battery fluids have leaked from potential contamination the junk cars into the soil. There are established and to assess the potential procedures for the remediation of automobile liability for contamination salvage yards. The cleanup cost is approximately on the site. $4,100 per vehicle. Approximately 250 cars would The investigation would need to be removed. It is believed that removal of include interviews with the vehicles and vehicle parts along with the property owners, a review excavation, treatment, and disposal of affected of historical documents, soiled would be sufficient to obtain an ADEC “No regulatory agency Further Action” designation (Shannon & Wilson consultation, and 2006). complete site inspection.

Because no excavation activities are planned for Tina Lake, the need to clean up the affected water is not anticipated for the Proposed Action.

West Dowling Road Connection Project – November 2007 November 2006 3.19-5 Contaminated Sites The estimated cost to clean up hazardous material found in the proposed ROW is $ 1.1 million.

Construction

Construction activities associated with the Proposed Action would not affect any known hazardous waste sites. Sites recognized as potential hazardous waste sites within the construction ROW would be investigated before construction and any hazardous waste found would be addressed in accordance with state and federal regulations.

Hazardous materials that would be used, transported, or stored within the project ROW as part of the construction activities could adversely affect the environment if not properly handled and contained. Materials would include asphalt, concrete, cable lubricants, and equipment fuel and lubricants.

To minimize and prevent spills or leakage of hazardous materials during construction, standard spill-prevention measures would be implemented during construction. To mitigate the effect of for potential hazardous materials spills, spill clean-up equipment (such as oil-absorbent pads) would be available onsite during construction and construction personnel would be trained in their use.

Mitigation and Authorizations

The location and extent of the release from the LUSTs would be determined before construction.

A Hazardous Waste Site Investigation would be conducted before property acquisition. If necessary, an ADEC corrective action plan would be developed and implemented to handle any known contamination within the construction limits.

The construction contractor would be required to prepare and implement a Hazardous Materials Control Plan to prevent and limit contamination and unintended contaminant releases.

3.19-6 West Dowling Road Connection Project – November 2007 November 2006 Contaminated Sites

If contaminated materials were encountered unexpectedly, all work in the area of contamination would be stopped and ADEC would be contacted. All contaminated material would be handled and disposed of in compliance with an ADEC-approved corrective action plan.

Further investigation into possible contamination would be conducted before property acquisition. In the event contamination is encountered during construction, it would be addressed in accordance with applicable state and federal regulations.

Hazardous materials used during project construction would be stored and handled according to local, state and federal regulations. If required, a SPCC plan would will be prepared and implemented by the construction contractor to address storage of fuels on-site. Material Safety Data Sheets would be available for all hazardous materials on the site. A hazardous material control plan would be developed for the selected alternative. Construction vehicles would contain spill prevention kits in case of minor hazardous materials or chemical spills during construction. • Construction plans would include measures to contain potential contaminants. • Standard spill-prevention measures would be implemented during construction. Spill cleanup equipment (such as oil-absorbent pads) would be available onsite during construction and construction personnel would be trained in their use.

A Section 404 permit and a Section 401 Water Quality Certificate would be required before placing any fill in Tina Lake.

West Dowling Road Connection Project – November 2007 November 2006 3.19-7 Contaminated Sites 3.20 Visual

Existing Conditions

The visual environment of the study area is dominated by a commercial and industrial area with few road outlets to main roads. There are residential areas at each end of the study area. Currently, Tina Lake is not very visible because of the surrounding industrial development. Roadways, railroad tracks, and utility lines also cross the study area.

In general, the area is flat, and the elevation of the area is similar in elevation to surrounding areas; therefore the study area is not a viewpoint or highly visible from surrounding areas. The study area offers no views or overlooks to other parts of town. Below is a series of photos from the study area. The approximate locations from where the photos were taken are shown in Figure 3.5453.

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Environmental Consequences

The No Action Alternative will have no impact on the visual environment. Looking north, residents along 68th Avenue see a three-lane road which is screened by vegetation.

West Dowling Road Connection Project – November 2007 November 2006 3.20-1 Visual

Figure 3.5554 Photo 1: View of Campbell Creek Crossing of Dowling Road from South Side of Trail

Figure 3.5655 Photo 2: View of Campbell Creek Trail and Bridge Looking West on Dowling Road

3.20-2 West Dowling Road Connection Project – November 2007 November 2006 Visual

Figure 3.5756 Photo 3: View of the Alaska Railroad Crossing on Arctic Boulevard

Figure 3.5857 Photo 4: View of Campbell Creek Bridge Looking East

West Dowling Road Connection Project – November 2007 November 2006 3.20-3 Visual

Figure 3.5958 Photo 5: Northern Edge of Tina Lake

Figure 3.6059 Photo 6: Tina Lake Looking Southeast

3.20-4 West Dowling Road Connection Project – November 2007 November 2006 Visual

Figure 3.6160 Photo 7: Existing Terminus of Raspberry Road

The Proposed Action would not have a substantial significant visual impact. Visual impacts occur when changes in the landscape are noticeable to viewers. The viewsheds would change but would still include commercial, industrial, and residential land uses along with roadways, railroad tracks, and utility lines.

The Proposed Action would be most visible near Tina Lake. A road along Tina Lake would create a visual impact; however, the road would be adjacent to industrial property. The area near Tina Lake would become visible from the road and pathways. The bridge crossing Arctic Boulevard and embankments could be as high as 45 feet where it crosses the railroad tracks.

Looking north, residents along 68th Avenue may see portions of the roadway or a noise wall.

West Dowling Road Connection Project – November 2007 November 2006 3.20-5 Visual

The Campbell Creek bridge would be higher and more visible because of the increase in clearance.

Construction

Visual impacts related to construction would include material storage and construction equipment (such as spoil piles and cones). For nearby residents, these items may be visually displeasing; however, the visibility of construction- related items would be a temporary condition and would not result in a substantial long-term impact.

Mitigation and Authorizations

To lessen the effect of the Proposed Action on the visual environment, all disturbed slopes would be seeded with native grasses and appropriate landscaping would be incorporated into the project. A landscaping plan will be developed during the design phase of the proposed project and incorporated into the project plans.

3.20-6 West Dowling Road Connection Project – November 2007 November 2006 Visual 3.21 Indirect & Cumulative Effects

Federal regulations implementing NEPA (40 CFR 1508) defines indirect (secondary) and cumulative effects (cumulative impacts). See sidebar Indirect effects are caused by definitions. The following sections identify and the action and are later in time describe potential indirect and cumulative effects or farther removed in distance, that could result from the Proposed Action in but are still reasonably foreseeable. Indirect effects combination with other past, present, or may include growth inducing reasonably foreseeable future human actions or effects and other effects natural events near the project area. These other related to induced changes in actions and events are called external actions the pattern of land use, because they take place independently from the population density or growth rate, and related effects on air Proposed Action. By considering external actions and water and other natural that could interact with the alternatives, the systems, including ecosystems. indirect and cumulative effects analysis allows (40 CFR § 1508.8) potential unintended consequences of the Cumulative impact is the alternatives to be identified. impact on the environment, which results from the The indirect and cumulative effect analysis for the incremental impact of the proposed project alternatives include: action when added to other past, present, and reasonably foreseeable future actions • Definition of spatial (geographic) and regardless of what agency temporal (time frame) boundaries of the (Federal or non-Federal) or analysis person undertakes such other actions. Cumulative impacts • Identification of past, present, and can result from individually reasonably foreseeable future actions that minor but collectively significant could produce additive or synergistic actions taking place over a environmental effects when combined with period of time. (40 CFR § 1508.7) potential direct or indirect impacts of the alternatives • Description and discussion of potential indirect and cumulative effects of project alternatives on the physical, biological, and human environments

West Dowling Road Connection Project – November 2007 November 2006 3.21-1 Indirect & Cumulative Effects For the purposes of this indirect and cumulative effects analysis, the area of analysis for some impacts is the entire Anchorage Bowl. For instance changes to land use and traffic which affect the project occur throughout the Bowl. In this analysis, however, the impacts most readily identifiable are anticipated to occur in the

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Before 1950, the project area was largely undeveloped. Figure 3.6362 shows the area around Tina Lake in 1950. A few roads/trails and the railroad track, but very little other development, can be seen.

Figure 3.6362 Photo of Tina Lake in 1950

By 1975 (Figure 3.6463), the area looked noticeably different. The transportation network

3.21-2 West Dowling Road Connection Project – November 2007 November 2006 Indirect & Cumulative Effects was more extensive. Residential and commercial developments had been added along Dowling Road and Potter Drive. Industrial and commercial development was beginning to occur around Tina Lake.

Figure 3.6463 Tina Lake in 1975

Since the 1975 photo, development in the project area has increased. Tina Lake is surrounded by industrial and commercial development, and more development has occurred along Dowling Road and Potter Drive.

Reasonably foreseeable future actions that have been identified within the temporal and geographic boundaries of the project area are discussed below.

Proposed Local Transportation Improvements

A grade-separated crossing is planned for the C Street crossing near 68th Ave. This project is not in the LRTP as a “long-term’ project. ; therefore, its timing is uncertain. Long-term projects are planned for 2015-2025.

West Dowling Road Connection Project – November 2007 November 2006 3.21-3 Indirect & Cumulative Effects

MOA is planning to extend 68th Avenue from its current terminus at Minnesota Drive to Arctic Boulevard in summer 2007.

Dowling Road will be extended eastward from its existing terminus at Norm Street to Abbott Loop Road. This project is in the LRTP, and an environmental document is currently being developed.

Boniface Parkway is being extended to parallel Tudor Road and connect at 48th Avenue and Bragaw Street. This road will provide additional east-west capacity between Boniface Parkway and Lake Otis Boulevard. Traffic will have to use Tudor Road or Dowling Road to reach this extension. The Boniface Parkway extension may result in increased traffic along Dowling Road.

Development

Much of the Anchorage Bowl is already developed. In recent years, the project area has seen the development of several multi-family residential units. The demand for new residential construction is higher in other parts of Anchorage; therefore, it is unlikely the project area will see a noticeable amount of new residential units.

As the amount of available industrial land in Anchorage decreases, pressure will build for more intense development in existing industrial areas. Additional industrial land uses within the project area are anticipated.

A new Wal-Mart has been proposed on 64th Avenue near the intersection of Dowling Road and New Seward Highway. The area is currently zoned commercial.

In the next ten years, it is expected that the ChangePoint Church (former Alaska Seafood International) site will be renovated. The property has been purchased as a church. Expected fFuture uses expected include church services, a charitable

3.21-4 West Dowling Road Connection Project – November 2007 November 2006 Indirect & Cumulative Effects automotive service, and a year-round sports facility.

Transit-Supportive Development Corridor

Implementation of Anchorage 2020 will result in more residential and commercial development along Arctic Boulevard. This corridor is expected to experience a growth in transit services and pedestrian trips.

Indirect and Cumulative Effects

Indirect and cumulative effects to air quality would primarily result from construction vehicle exhaust and fugitive dust emissions during site preparation and construction activities. These project-specific effects combined with other construction activities in the general area surrounding the project area will result in a minimal incremental adverse impact. An increase in travel efficiency associated with the Proposed Action could potentially reduce vehicle emissions in the Anchorage Bowl and is consistent with the LRTP and the Statewide Transportation Improvement Program. Air quality conformity analysis conducted as part of the LRTP encompasses all anticipated population, land use, and transportation projects in the Bowl. This project in conjunction with other planned projects meets conformity requirements.

Indirect and cumulative impacts to aquatic resources would occur primarily from soil erosion and sedimentation during construction. Indirect growth that might occur as a result of the project could increase impermeable surface and contribute to runoff. Drainage improvement proposed as part of the project would also help to treat runoff associated with that growth. When mitigation measures for the Proposed Action are considered, the incremental impact of the Proposed Action would be minimal.

The Proposed Action and indirect land use growth along the corridor would contribute to the removal of vegetation common to the area. Most of the

West Dowling Road Connection Project – November 2007 November 2006 3.21-5 Indirect & Cumulative Effects corridor has already been disturbed or developed. A segment of 68th Avenue would be revegetated, mitigating some loss of vegetation. Considering future development in the project area and the availability of similar vegetation/habitat, cumulative effects to vegetation are not considered substantial significant.

The Proposed Action in combination with other reasonably foreseeable future actions would have a minor cumulative impact on land use by removing some existing development and preventing some parcels from being developed. As part of the planning done for Anchorage, MOA plans anticipate that there is adequate land to replace the land being affected, and potential adverse cumulative impacts to land use would be minimal.

The Proposed Action could have a minor indirect impact on land use by encouraging additional development on the adjacent properties. The Proposed Action is consistent with land use and other reasonably foreseeable development based on planning documents such as Anchorage 2020 and the LRTP and is beneficial to these plan’s implementation.

The Proposed Action would reduce the amount of privately owned land. It is assumed that this loss of property tax revenue would be offset by increases in property values of indirect growth of other parcels along the route, resulting in no adverse cumulative impact to the economy.

When combined with the East Dowling extension and Abbott Loop extension projects, the corridor would experience higher traffic volumes than without the Proposed Action. East of New Seward Highway, the Proposed Action would increase the ADT by less than 30 percent. Between Old Seward Highway and New Seward Highway, traffic volumes would be approximately 40 percent greater with the Proposed Action. Between Old Seward Highway and Potter Drive, traffic volumes would be approximately 50 percent higher with the Proposed Action. Traffic volumes on other routes would decrease, however, resulting in reductions in system-wide congestion and traveler delay. As

3.21-6 West Dowling Road Connection Project – November 2007 November 2006 Indirect & Cumulative Effects part of Anchorage’s long range transportation plan, these changes are anticipated, consistent, and planned as a benefit to the traveling public. No adverse indirect or cumulative impacts are expected.

Most of the project area is considered uplands. The minor amounts of wetland (approximately 1.67 acres) needing to be filled as part of the proposed project would contribute to a cumulative loss of wetlands in the Anchorage Bowl. The affected wetland would represent less than 0.03 percent of wetlands in the Anchorage Bowl.

To minimize wetland loss, USACE, EPA, and MOA take measures to reduce the cumulative impact to wetlands in the Anchorage Bowl. The wetlands adjacent to Tina Lake are considered Preservation (or Class “A”) wetlands. This type of wetland is considered the most valuable class of wetland in the Anchorage Bowl. Permits to fill in Preservation wetlands are generally limited to projects with a strong public need. The majority of the Preservation wetlands are in designated parks, making it unlikely that further cumulative impact would occur.

Resource agencies have participated in the development of the Proposed Action. In response to agency comment, the Proposed Action has incorporated measures to preserve wetlands. Indirect growth pressures along the project corridor could occur as a result of the project. Additional protection through conversion to public ownership is proposed on approximately half of Tina Lake.

The Proposed Action requires filling a portion of Tina Lake and would contribute to a cumulative loss of water bodies in the Anchorage Bowl.

No impacts to minority or low-income populations have been identified for the Proposed Action and therefore indirect and cumulative impacts to minority or low-income populations would be negligible.

West Dowling Road Connection Project – November 2007 November 2006 3.21-7 Indirect & Cumulative Effects The additional development that is expected as the result of the Proposed Action would result in a slight increase in employment and income in the Anchorage area.

No indirect or cumulative impact to utilities or contaminated sites is anticipated. The Proposed Action would not contribute to indirect or cumulative effects on cultural or historic sites.

The Proposed Action would have a long-term cumulative benefit to recreation resources due to the connection of the Campbell Creek Trail under the bridge.

Mitigation and Authorizations

Coordination with the Municipality of Anchorage, other local entities, state and federal agencies, and the public will be ongoing throughout the design and construction process to ensure that the direct, indirect, and cumulative effects of the proposed action are avoided and minimized to the extent practicable. The EA/FONSI will be provided to the Municipality and made available to all agencies and the public in order for them to better plan for future indirect and cumulative impacts from the action.

3.21-8 West Dowling Road Connection Project – November 2007 November 2006 Indirect & Cumulative Effects 3.22 Irretrievable and Irreversible Commitment of Resources

NEPA requires a review of irreversible and irretrievable effects that occur from the development of the Proposed Action. Irretrievable effects apply to losses of production, use, or commitment of non-renewable natural resources. Irreversible effects apply primarily to the use of non-renewable resources, such as minerals or cultural resources, or to those factors that are only renewable over long periods of time, such as soil productivity. Irreversible effects also include the loss of future options.

The No Action Alternative would not change the current commitment of resources.

Under the Proposed Action, irretrievable and irreversible commitments of resources would occur from the use of land, fill and gravel resources, electrical energy, fuel, and labor. The commitment of energy and labor for construction is considered irretrievable and irreversible. These resources are not in short supply, and resource use would not have an adverse effect on continued availability of these resources. Any construction would require an expenditure of both state and federal funds, which is not retrievable.

The Proposed Action would involve an irretrievable and irreversible wetland loss. The project minimized the amount of wetlands being affected. The project includes measures to protect wetlands that would otherwise be at risk from future development such as converting wetlands near Tina Lake from private to public ownership.

Land used in the construction of the Proposed Action is considered an irreversible commitment during the time period the land is used for the project. In the long-term, if a greater need arises for the use of the land or the road is no longer needed, the land can be converted to another use. At present, it is not expected that such a conversion would be necessary or desirable. The Proposed Action represents a small portion of land

West Dowling Road Connection Project – November 2007 November 2006 3.22-1 Irretrievable and Irreversible Commitment of Resources in the surrounding region and is consistent with local plans.

The commitment of these non-renewable resources is based on the premise that area residents would benefit from the improved quality of the transportation system. Benefits include improved accessibility, time savings, and greater availability of services. The benefits are anticipated to outweigh the commitment of these resources.

3.22-2 West Dowling Road Connection Project – November 2007 November 2006 Irretrievable and Irreversible Commitment of Resources 3.23 Local Short-Term Uses Versus Long-Term Productivity

NEPA requires a review of the balance between short-term uses and long-term productivity of resources within the study area. Short-term refers to the useful life of the project, and long-term refers to the time beyond the lifetime of the project. Impacts that narrow the range of beneficial uses to the environment are of primary concern. Potential impacts include the selection of a Proposed Action that reduces the ability to pursue other possibilities and committing a piece of land or other resources to a particular use that limits additional uses being performed on this site.

Conversion of the land to a roadway use represents a short-term action that would have a long-term effect on the productivity of the land. The conversion would have a long-term beneficial effect on the efficiency of the transportation system through the time saving to travelers and reduced vehicle emissions. In addition, use of adjacent industrial land, consistent with Anchorage 2020 and the LRTP would provide improved accessibility to the industrial reserve from the highway and arterial road system.

West Dowling Road Connection Project – November 2007 November 2006 3.23-1 Local Short-Term uses verses Long Term Productivity 4.0 Consultation and Coordination

During the preparation of this EA, federal, state, and local agencies; governments; tribal organizations; and the public were consulted to obtain pertinent information, identify issues and mitigating measures, and assist in the development What is project scoping? of reasonable alternatives. Initial outreach methods Scoping is a process included newspaper advertisements, news releases, intended to identify and postcard mailings, public meetings, interagency clarify issues relevant to scoping meetings, and telephone interviews of key the proposed project. stakeholders. The initial coordination for the Project scoping activities accomplish the project is described in the Scoping Summary Report following: for the project, provided in Appendix B (HDR • Inform the public and 2003). Consultation on specific issues has agencies about continued with various agencies. The primary issues proposed actions and how they were addressed are displayed in Table and alternatives 4.1. • Collect information to help identify Table 4.1 Summary of Issues and Responses environmental Issue Responses impacts • Ensure that the Wetland To minimize wetland impacts, the environmental impacts. alignment was shifted to the north document considers in the vicinity of Tina Lake. The reasonable Proposed Action will increase the alternatives water level in Tina Lake. It will • Help identify issues put wetlands into public and concerns of the ownership. The Proposed Action community and will act as a buffer between the resources agencies wetlands and the adjacent industrial uses. The project has also incorporated water treatment measures. Concern No work will be performed below regarding Ordinary High Water. The adversely affect Proposed Action does not EFH and anticipate any adverse effect on anadromous EFH or anadromous fish fish resources. resources. Campbell Creek The replacement Campbell Creek Bridge bridge is longer and wider than the existing bridge. The bridge abutments will be above ordinary high water. No riprap will be placed below ordinary high water.

West Dowling Road Connection Project – November 2007October 2006 4.0-1 Consultation and Coordination The bridge will also have approximately 1012 feet of clearance to facilitate moose passage. The Campbell Creek Trail will also be re-directed to go under the bridge. Railroad The Proposed Action includes a Crossings grade-separated rail crossing. The existing at-grade crossing of the Alaska Railroad by Arctic Boulevard will remain. Impacts to The Proposed Action includes Recreation enhancements to the Campbell Creek Trail. MOA Parks and Recreation believes these enhancements will result in a benefit to the Trail and the Campbell Creek Greenbelt. Contaminated The sediment sample in Tina Lake Sites revealed that the arsenic and chromium levels were present in levels above the applicable cleanup levels. These concentrations are within the range of naturally occurring levels within Anchorage and are not expected to impact the project.

A water sample of Tina Lake contained an RRO concentration level that is greater than the applicable cleanup level. Because no excavation activities are planned for Tina Lake, the need to clean up the affected water is not anticipated.

On the parcels used for vehicle storage, it is expected that fluids such as gasoline, oil, or battery fluids have leaked from the cars into the soil. There are established procedures for the remediation of automobile salvage yards. The cleanup cost is approximately $4,100 per vehicle. Approximately 250 cars would need to be

4.0-2 West Dowling Road Connection Project – November 2007 October 2006 Consultation and Coordination removed. It is believed that removal of the vehicles and vehicle parts along with the excavation, treatment, and disposal of affected soiled would be sufficient to obtain an ADEC “No Further Action” designation.

The Environmental Assessment for the West Dowling Road Connection Project was distributed to agencies on December 21, 2006. Notice of the availability of the EA and of a January 16, 2007 public hearing was mailed directly to the project mailing list on January 2, 2007 and was advertised in the Anchorage Daily News (Jan 2, 9, 14, 15, 16, 2007) and on the project website. The public hearing was also announced via the project website, What’s Up email list, the Anchorage Press calendar and Craigslist. The deadline for comments on the EA was January 31, 2007. Copies of the notices are included in Appendix L.

A public hearing was held in Anchorage on January 16, 2007. It was conducted at Taku Elementary School to assure easy access for the citizens living near the project area. Verbal comments at the meeting primarily addressed right-of-way and relocation concerns. A written comment form was provided. Three written comments were received on the comment forms. An additional 9 written comments were received via emails and letters from members of the public. Copies of all materials relating to the January 16 public hearing, hearing minutes, tables documenting all formal public comments on the EA and DOT&PF comments, and copies of all written comments are provided in Appendix L.

In addition to the public comments, written comments were received from the following agencies: U.S. Army Corps of Engineers, NMFS, DNR-OMHP, DEC, MOA, and the ARRC. Copies of comments are included in Appendix L.

Formal comments received during the comment period, and their response, are summarized in Table 4.2. Copies of the original comments are included in Appendix L.

Table 4.2 Comments Received during Formal Comment Period and Comment Responses Transcript Comments Commen Last Name, t # First Name ORGANIZA TION Comment Date (Reference) Comment Summary Response to Comment Johnson, My name is Charles Johnson The timing of project design and construction is 1 Charles and I'm at 275 East Dowling at dependant on when funding is available for the

West Dowling Road Connection Project – November 2007October 2006 4.0-3 Consultation and Coordination Self Campbell Apartments, Lots 4 project. Currently, it is anticipated that federal 01-16-2007 18 and 19, Block 3. And the funds will be available for construction in 2011. (01_16_07 proposed action it looks like Johnson our lots, along with the lots Section 301 (5) of the Uniform Relocation Hearing) alongside us are all scheduled Assistance and Real Property Acquisition Policies to be acquired for right-of-way Act of 1970 as amended, says ”the construction or purposes. And our concern is development of a public improvement shall be so when this action may take scheduled that, to the greatest extent practicable, place, and what kind of time no person lawfully occupying real property shall be frame we're going to have. required to move from a dwelling (assuming a replacement dwelling as required by title II will be I understand under the available), or to move his business or farm Uniform Relocation Act that operation, without at least ninety days' written once right-of-ways of notice from the head of the Federal agency properties are purchased from concerned, of the date by which such move is the point that we receive required. payment we have a year to move. Also see the responses to comments 14, 3b, 7a, 11a and 14. So I see a lot of time delays in this project. So I'm just kind of trying to get my ducks in a row and find out what and where and when. Thank you. Burton, My name is Richard Burton. I The existing Dowling Road/Potter Drive is Richard own or occupy a four-plex at reaching the end of its effective life and can not Self 238 East Dowling Road. accommodate the anticipated future traffic 01-16-2007 Currently it's right where volumes. Part of DOT&PF’s responsibility to the Potter Drive turns into residents of Anchorage is to maintain an efficient Dowling Road. So far my transportation network. The West Dowling Road property is not slated to be improvements have been in the LRTP for over 20 acquired for right of way or years as a necessary part of that network. anything. But yet my property is going to be negatively Traffic is expected to increase in front of your impacted by the amount of property. A driveway meeting all applicable construction and the amount standards will be provided as part of the project to 2a of traffic coming through. The ensure that there will be safe access to your only way I can survive is by property. renting my apartment to, you know, prospective renters. DOT&PF will minimize construction impacts to And the project is going to existing residential properties to the extent negatively impact my ability to feasible. Access to your property will be get good renters and keep maintained during the construction period. good renters. The following statement has been added to Section 3.13 of the EA. Residential properties along Dowling Road may become less desirable because of increased traffic and noise.

Also, the area is going to Currently, snow from private properties can not be affect where I can put my snow stored in right-of-ways or sidewalks. As no land is removal. being acquired from your property, you should be 2b able to continue using your current on-site storage location.

And also, for me being able to The Anchorage School District is responsible for cross the road on foot because the location of school bus stops. The Campbell my children have to get to the Creek Trail will have a grade-separated crossing. 2c school bus, there's no way that is going to work out for me either. So I think it's a good project At this time, DOT&PF does not anticipate and I'm all for it. I just feel acquiring your property as part of the project. like I should be compensated. And if the State needs my 2d property to help the project go along better, I'm willing to go ahead and relocate. Thank you.

3a Grimm, My name is Russell Grimm and The MOA traffic model anticipated the existing

4.0-4 West Dowling Road Connection Project – November 2007 October 2006 Consultation and Coordination Russell my comment is that I section of Dowling Road between the Old Seward Self understand deeply the need for Highway and Potter Drive to have approximately 01-16-2007 east/west traffic. I am right 25,000 cars per day in 2025. This traffic volume can on the proposed way. My not be adequately accommodated with the existing property is slated to be taken number of lanes. More information on projected or acquired. But I would like traffic volumes can be found in Section 3.14. to make sure that a five-lane road is really needed and not three lanes. I don't want to move any more than anybody else does if not necessary. Like I say, I see the need for it. And I applaud the City for planning that kind of stuff because traffic is just so terrible.

The second item I'm Property acquisition and relocation would be concerned about is the value of conducted in accordance with the Uniform my property that I'm going to Relocation Assistance and Real Property be turning over. I want to Acquisition Action of 1970, as amended, and the make sure that I have Alaska Relocation Assistance and Real Property compensation that allows me Acquisition Practices, Alaska Statutes (AS) to get into an equal value 34.60.010 et seq. Also see the response to comment home. And in days past it 1. 3b seems like people were treated poorly -- at least in other As part of the acquisition process, each property communities I've lived in -- will be appraised to determine its fair market and given low value. So that's value. The appraisal will be independently and my concern. I just want to impartially prepared by a qualified appraiser. The make sure I get fair market property owner or their representative will be value. So thank you very allowed to accompany the appraiser during their much. inspection of the property. The property can not be purchased for less than the fair market value. Hroza, My name is Timothy Hroza. I Noise walls along this section of Dowling Road Timothy live at 242 East Dowling. were studied as part of this project. They were not Self That's between the Old Seward considered feasible along this section because of 01-16-2007 Highway and Potter. I'm right the need for driveway access. Driveway openings in off Campbell Creek. We live the noise wall would reduce their effectiveness and on the southside, so I guess we there would not be a noticeable reduction in the are not going to be the one noise level. Please see the response to comment that get's demolished, which is 11b. For more information on noise, please see good. But I have a big section 3.15. concern about the lack of a sound wall on this section of the Dowling Street extension.

Right now the traffic speeds and the noise created is pretty -- I don't know the decimals, 4a but it's pretty horrendous -- and with five lanes, and we know the traffic speeds are probably going to go up substantially, it's imperative that we have sound walls similar to the ones that went up on C Street. They look nice, they protect. I know sound -- for the people that live directly behind them anyway, which is basically the way we are. So I would just ask that sound walls be put in this project, in this specific area.

Plus, I'm concerned about Improvements to the stormwater system are drainage, I guess. I assume included in the project. The project includes curb 4b there's going to be some sewer and gutter along Dowling Road. Stormwater from or storm sewer because the the road will be directed into the stormwater

West Dowling Road Connection Project – November 2007October 2006 4.0-5 Consultation and Coordination water is going to come rushing system where it will be treated prior to entering down right into my garage like Campbell Creek. For more information on it did this last spring, and stormwater, see section 3.4. ultimately right into Campbell Creek otherwise. All right. I guess that's all I have to say. Thank you. Comment Sheet Comments Burton, This project is a good project, A noise study was conducted as part of this Richard but economically it will impact project. The study indicates that your property will Self me too much. I owner occupy a experience a 1dB[A] increase in noise levels as the 01-17-2007 four-plex right in the curve of result of this project. This is not considered a (R.Burton Potter and Dowling Road. substantial impact to your property as a 1dB[A] Comment) Renters will not find my place increase would not be perceptible. See hearing as a favorable location due to traffic noise and accessibility A noise wall along this section of Dowling Road to my driveway. was analyzed as part of this study. It was not considered feasible along this section because of 5a the need for driveway access. Driveway openings in the noise wall would reduce their effectiveness and there would not be a noticeable reduction in the noise level. For more information on noise impacts, see section 3.15.

To maintain access to your property, DOT&PF will provide a driveway that meets all the applicable standards.

Also drainage is a problem Improvements to the stormwater system are because the grade will be included in the project. Also see the response to 5b much higher than it already is. comment 4b. For more information on storm water improvements, please see section 3-4. Snow removal will be Currently, snow from private properties can not be impossible. stored in right-of-ways or sidewalks. As no land is being acquired from your property, you should be 5c able to continue using your current on-site storage location.

Safety is a big concern The Anchorage School District is responsible for because my kids cannot cross the location of school bus stops. The Campbell 5d the road to get to the bus Creek Trail will have a grade-separated crossing. stop.

Please consider acquiring my At this time, DOT&PF does not anticipate 5e property for the sake of the acquiring your property as part of the project. project. Kintz, Gerry I attended to January 16th Comment Noted. Self Open House at Taku School. 01-22-2007 The displays and information (01_22_07_K were well presented and most intz_comme helpful. nt_sheet) I fully support the project and preferred alternative. Completion of the Dowling Road connection will allow both the Minnesota/Raspberry 6a Interchange and Raspberry Road (west of the interchange) to function at their full potential. These facilities were designed in anticipation of the future connection.

My residence is located west of Minnesota Drive and I would be a frequent user of the Dowling Road connection.

4.0-6 West Dowling Road Connection Project – November 2007 October 2006 Consultation and Coordination I’m glad to see the project has finally reached its current milestone, and I hope for continued progress towards construction.

Thank you for the opportunity to comment. Johnson, What is the plan for possible Right-of-Way (ROW) acquisition will not occur Charles C. acquisition buyouts? When? until a later phase of the project. During the next Self What kind of notice? phase of the project (the design phase), the project 01-17-2007 will be refined and ROW impacts may change. (C.JohnsonC Once the design is near or at completion, DOT&PF omment) will acquire the necessary ROW. Currently, design See 01_16_07 and ROW acquisition is scheduled to occur Johnson between 2007 and 2011. Hearing Once DOT&PF begins the ROW acquisition phase, a representative of DOT will contact the property owner. DOT&PF will then negotiate with the 7a property owner regarding the purchase of their property.

Property acquisition and relocation would be conducted in accordance with the Uniform Relocation Assistance and Real Property Acquisition Action of 1970, as amended, and the Alaska Relocation Assistance and Real Property Acquisition Practices, Alaska Statutes (AS) 34.60.010 et seq.

Also see the response to comments 1 and 3b.

Email and Written Comments Vartanian, The proposed upgrade for Your comment has been noted and will be Mher Dowling road seems rather considered during the design phase of the project. Self extravagant. Why 6' sidewalks 01-10-2007 when not very many people The traffic forecast for the project indicates that (01_10_07 ever walk in that area. Why four traffic lanes are required. (a) such a wide road, when doing M.Vartanian so you take peoples property The project’s sidewalks and pathways are designed Email) away lower property values for to dimensions required by DOT&PF design those affected. Why all the standards. The sidewalks and pathways are trees and grass, how will we consistent with adjacent sections of Dowling Road. pay for their upkeep and Landscaping is required by the MOA. maintenance. Already there are roads with greenery not kept up in the summer months because of funding shortages. 8 I think designers should get out of their glass houses and visualize the taxpayers unwillingness to pay higher taxes. As you know the cost of living is going up, wages are stagnant people are having a hard time making it. What will it take for people in government to understand short of a tax revolt or maybe a revolution. I think you people should design something more palatable and not so costly.

Vartanian, Why the 6' sidewalks, all the Comment Noted. See response to comment 8. Mher greenery, such a wide road. All Self this will not only cost much 9 01-10-2007 money but those affected will (01_10_07 be losing their property. Who M.Vartanian will maintain the greenery

West Dowling Road Connection Project – November 2007October 2006 4.0-7 Consultation and Coordination Email) when already we cant afford to See 01_10_07 care for the trees and such we (a) M. have. I think those who work Vartanian for the government should get out of the glass houses and visualize themselves in taxpayers place. Taxpayers already are revolting and refusing to pay higher taxes for teachers salaries. The mayor only got elected because the challenger was just as big a spender. The people in this town are sick of high taxes. I think that you people should lower your designs so that it is not so costly but also effective.

Wetherell, I just wanted to submit that a A new interchange is not being proposed as part of Matt Dowling Road interchange this project. The project will connect to the Self with Minnesota is a dangerous existing Raspberry Road interchange. 01-09-2007 concept. You have safety (01_09_07 issues already with the M.Wetherell entering and exiting traffic Email) between the International Airport Road and Raspberry 10 Road interchanges. There is not room to add another interchange into the mix. I have read many of the reports and summaries and was not able to see this issue addressed.

Hroza, Tim I live on Dowling between It is anticipated that additional right-of-way Self Potter and Old Seward in a (ROW) will be purchased to accommodate the road 01-08-2007 new townhouse. My concern is and pedestrian improvements. It is anticipated (01_08_07 how are you going to fit 5 that some residents may be relocated as a result. T.Hroza lanes of traffic, sidewalks and Final decisions regarding potential property Email) a bike trail thru this corridor? acquisition and relocations will not be made under the design and ROW acquisition phase of the project.

11a Property acquisition and relocation would be conducted in accordance with the Uniform Relocation Assistance and Real Property Acquisition Action of 1970, as amended, and the Alaska Relocation Assistance and Real Property Acquisition Practices, Alaska Statutes (AS) 34.60.010 et seq.

The noise already is Noise walls along this section of Dowling Road deafening, especially in the were studied as part of this project. They were not summer with heavy equipment considered feasible along this section because of and belly dumps speeding the need for driveway access. Driveway openings in down the corridor at 50 miles the noise wall would reduce their effectiveness and per hour, and no police in there would not be a noticeable reduction in the sight! noise level. Please see the response to comments 4a. For more information on noise impacts, please 11b If this expansion goes, there see Section 3.15. needs to be sound walls built, just like on C St, not only for the noise but for safety from the speeding traffic which will probably be less than 10 feet from my townhouse.

Plus, its imperative that you The project does not anticipate moving electric 11c put the electrical lines lines along Dowling Road between the Old Seward

4.0-8 West Dowling Road Connection Project – November 2007 October 2006 Consultation and Coordination underground as one hit from a Highway and Potter Drive. If the electrical lines moving truck and the wires need to be moved, the location of the electrical will come down on my lines will be determined by Chugach Electric. townhouse.

Yes, I bought the end unit, on The development of the West Dowling Road as an the street side, but thought arterial road has been in the Long Range that since this was a Transportation Plan for over 20 years. Traffic residential area, it would volumes along West Dowling Road are expected to remain residential and the increase with or without this project. The traffic traffic speeds to reflect that. speed will be established based on DOT&PF Please keep the speed limit to requirements for arterial roads in urbanized areas. 11d 25 as there are more and more This section of Dowling Road is current classified small children in the as a major arterial. There will be a sidewalk or neighborhood with the separated trail between the townhouses and the addition of 20 new townhouses road. in my neighborhood in the last 3 years.

Head, I am a homeowner and my The project area is between the Old Seward Jolene house backs up to Dowling off Highway to Minnesota Drive. The residential Self of Lake Otis in the Spruce buildings being considered for relocation are 01-11-07 Meadows development. After between the Old Seward Highway and Potter Drive. (01_11_07 reading the ADN article this Your house is not located in this area. 12 J.Head morning, I would like Email) clarification of which residential buildings are being considered for relocation. Thank you.

Hudish, MY HUSBAND WITH SOME The decision to move the proposed project north Betty FRIENDS WHEN HE WAS IN on Tina Lake off the existing Right-of-Way (ROW) Self THE AIR FORCE BOUGHT was based on several factors including the federal 01-14-2007 SOME LOTS IN requirement to minimize wetland impacts. (01_14_07Hu ANCHORAGE. IM VERY dish Email) DISAPPOINTED WITH THE The alignment may change somewhat during final Em CHANGES MOVING design but we do not anticipate a large scale DOWLING ROAD NORTH change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

West Dowling Road Connection Project – November 2007October 2006 4.0-9 Consultation and Coordination PROPERTY OWNER GOING TO DO NOW

Patrick, We just heard about the The West Dowling Road Connection Project is a Kirsten and Dowling road extension state DOT&PF project, not a city project. Ty project this week and we live Self in one of the new condos on Right-of-Way (ROW) acquisition will not occur 01-30-2007 Dowling near the Campbell until a later phase of the project. During the next (013007_patr Creek bridge that would have phase of the project (the design phase), the project ick_email) to be torn down to make room will be refined and ROW impacts may change. Em for the new road. Once the design is near or at completion, DOT&PF will acquire the necessary ROW. Currently, design We have never been through and ROW acquisition is scheduled to occur anything like this before as between 2007 and 2011. this was our first home purchase, so what can we Once DOT&PF begins the ROW acquisition phase, expect? How does the city a representative of DOT will contact the property work these things? What do owner. DOT&PF will then negotiate with the 14 they pay for? What sort of property owner regarding the purchase of their timeline can we expect? Our property and relocation expenses. home is still in its 1-year warranty period - is it worth Property acquisition and relocation would be having the builder come back conducted in accordance with the Uniform to fix the minor issues if the Relocation Assistance and Real Property place is just going to be torn Acquisition Action of 1970, as amended, and the down? We understand if you Alaska Relocation Assistance and Real Property are not the person to ask Acquisition Practices, Alaska Statutes (AS) about how the city works these 34.60.010 et seq. type things, but if you could point us in the right direction, Also see the responses to comments 1, 3b, 7a, and we would really appreciate 11a. that!

Fuller, Joel I was pleased to attend your Arcticorp open house on January 16, 01-31-2007 2007 at Taku Elementary. Em I must take exception though, DOT&PF has been working on this project for to a few of your statements. many years. The amount of work being done on the 1) DOT working on the project Dowling Road project has been dependent on for almost 20 years. It was funding and regional priorities. 1979 when the Right-of-Way 15a for this connector was purchased to the west of Arctic Blvd. with the alignment of Raspberry- Rovenna-Dowling. Originally Dowling has been shown on the plats since the 1960’s at least. This was also on Tony Knowles 1988-1990 Accelerated Roads plan. 2) We have two identifiers Different sources have a different elevation for placing the elevation of Tina Tina Lake. According to the MOA Floodplain Lake, one at 104.5 feet taken Coordinator, the Base Flood Elevation of Tina from MOA Topographic map Lake is 106.0. The new standpipe in Tina Lake will grid 1930. Also, the MOA now be set at the existing lake level. 15b directed to locate the elevation of the drain at 104.3, over one foot below the 100 year flood plain.

Overall, I would strongly The ROW estimate takes a conservative approach support the construction of and assumes that if DOT&PF needs to remove a Dowling Road. It is long building or acquire more than 50% of a parcel, the overdue and desperately property owner would prefer to sell the entire 15c needed. parcel.

I also believe the project from The ROW estimate has been updated using a an acquisition perspective is different methodology. The updated ROW estimate

4.0-10 West Dowling Road Connection Project – November 2007 October 2006 Consultation and Coordination way over budgeted. To some is $18.5 million. extent inflated numbers can be used to disrupt or derail the During the next phases of the project, the project. The biggest harm alignment will be refined to minimize ROW would result from not building impacts. Discussions will also be held with the project. I do not have the property owners regarding the acquisition of their information on construction property. One some parcels, only buying a portion costs to critique the of the lot is an option if the remaining lot meets construction budget. MOA requirements.

Several examples I am most familiar with are: 1) 5941 Arctic Blvd.-A slight encroachment of a possible fill line should not require the taking of the entire building and lot, compensation to all the tenants for relocation. This alone must reflect a savings of over 2 million of acquisition dollars or one piece of property.

2) Tract C3B- The plan calls for taking approximately 314,286 sq. ft. for Dowling and the connector road. There is approximately 100,000 sq.ft. of the property which will lie between the collector and Dowling, east of the alley which would not be impeded at all by the taking. (This is a piece of property which we have current development plans on which will be impacted by the decision, and we have been told by MOA that they will oppose any development plan which does not comply regardless of whether the plan is adopted.

Also, not allowing Usually DOT&PF retains ownership of all lands consideration the value of the purchased to accommodate future roadway excess Right of Ways, as well improvements. as the value of excess lands after taking a property, In cases where DOT&PF is interested in disposing artificially inflates the of excess land, there is no guarantee of a buyer. To acquisition cost of the project. be conservative, ROW estimate assumes that the ROW purchased for the project does not return to This is the largest complaint I private ownership. have with the project. Over 40 years we have been told Dowling is going to be built. Twenty-six years ago we sold a small piece of land for the 15d connector between Arctic and Minnesota. At the time when we discussed a building with MOA we were asked to not continue because they were sure the Dowling ROW would be expanded. Unfortunately, we did not push the issue (the current alignment would miss that planned development).

The greatest harm comes both to planning, and to the public, with planned, unbuilt roads

West Dowling Road Connection Project – November 2007October 2006 4.0-11 Consultation and Coordination which hinder any development whether incorporating the planned road or not.

While I support the project and think it will be a tremendous boon to the east/west transportation, I believe some small modifiers can result in substantial savings.

Mostly, however, this project does not need 3-4 more years of study, planning and allowance for more restrictions to be added, mostly because of a small, unremarkable pond in the middle of an industrial area whose permanence was significantly enhanced when “C” street was originally extended and paved in the mid-sixties.

The information is all available, and Dowling Road should go forward NOW!!

Kimlinger, My wife and I live at the north Driveway access to the Change Point Church Mike & end of Chad St. (location of facility will be refined during the design phase of Lydia RR14 in Figure 3.41 of the EA) the project. The driveway access will meet all Self and have the following applicable standards. Currently, the Church is 01-31-2007 comments about the proposed working with DOT&PF on improving access. In 01_31_07 West Dowling Extension addition, the Church has funded a traffic impact Kimlinger Project. assessment (TIA) to determine the impact the email.doc facility will have on the road system. The TIA em We observe congestion due to shows that signs or roundabouts will be necessary the Church every Sunday from by 2018. In the shorter term, the TIA has four 8am to approx. 1pm requiring mitigation recommendations that are to be the use of flaggers and traffic provided by the landowner. They are: control devices. • Construct an eastbound left turn lane for Seafood Drive traffic 16a When the Church facility if • Restripe and resign Seafood Drive for a used for special events left turn and right turn lane (several have occurred in the • Construct a second access to Raspberry evenings) similar congestion Road 800 to 1,400 feet east of Seafood occurs. Drive

• Plan for and provide special events traffic We expect this traffic volume control for large events (events with over to increase due to attendance 2,600 people attending or 1,000 vehicles at the sports dome, under per hour entering or departing). construction this winter.

From the typical depictions of The MOA’s Raspberry Road project has removed the extension it appears we this vegetation. DOT&PF plans on installing a will lose the tall tree screen noise wall between the neighborhood and the between our neighborhood and project. Landscaping will be part of the final 16b the extension. Some design but specific locations have not yet been additional screening or identified. The landscaping plan will go through fencing is desirable. the public process for comment before any decisions are finalized.

16c We experience significantly Noise studies conducted as part of this project

4.0-12 West Dowling Road Connection Project – November 2007 October 2006 Consultation and Coordination more traffic noise on the west have not studied any locations along Raspberry side of the house (facing west of Minnesota as, with the construction of this Minnesota). We expect there project, traffic patterns and associated noise levels will be noise impacts similar will change. A noise study was performed to other locations along specifically for this project. The study Raspberry Road. Have noise recommended a noise wall along Raspberry studies included any locations Road/68th Avenue from Minnesota Drive to just along Raspberry to the west of west of Rovenna Street. The design of the noise Minnesota for comparison? wall will not be decided until a later phase of the project. For more information on noise impacts, We request the erection of a please see Section 3.15. sound fence similar to the one along Cst south of 68th. As a The noise study will be re-evaluated during final second choice a design similar design. to the fence on Cst South of Dimond.

We strongly request no direct Chad Street is a MOA road, not a DOT&PF road. access to Chad for vehicular As a result, Chad Street access is controlled by the traffic. The “crash gate” MOA. 16d shown at the Jan 19th meeting or similar.

Our neighborhood already Construction contractors will be required to follow experiences significant DOT&PF specifications to control dust levels increases in airborne dust during construction. For more information on air from the materials activities at quality, please see Section 3.1. CPP on west Dowling during the construction season. We 16e request strict controls of dust be enumerated in the specifications to emphasize and reinforce the standard controls.

Agency Comments Mary Lee Since water bodies and For clarity and ease of reading for the average Plumb- wetlands are both “special reader, these chapters have been kept separate. Mentjes aquatic sites” subject to USCOE regulation under Section 404 01-29-2007 of the Clean Water Act and (013107_Lett both are often integrated into er_USACE) a water body/wetland 17a complex, as they are at Tina Lake, it would be helpful to have water bodies and wetlands discussed in the same section, not two separate sections (3.2 Water Bodies and 3.7 Wetlands)

Page 1-4: Add reference to Text changed to “Tina Lake and associated water body to “Tina Lake wetlands” 17b wetlands.”

Page 3.2-1, Existing EA text changed to reflect this. Conditions: The Corps also does not consider Campbell 17c Creek or Tina Lake as navigable.

Figure 2.1 shows proposed North is oriented to the left on this map. road going through southwest 17d end of lake, not the northern end.

Page 3.2-2, Tina Lake: Add Statement added. statement that Tina Lake is a 17e special aquatic site regulated under Section 404 of the Clean

West Dowling Road Connection Project – November 2007October 2006 4.0-13 Consultation and Coordination Water Act.

Add statement that while the While these statements are believed to be true, water column may be about 18 there has been no research regarding the lake inches deep that the bottom is bottom or the lake depth. 17f soft and a weighted body would sink deeper than 18 inches.

Which side of the lake North side is correct. Text corrected. “appears to have been recently filled?” Isn’t it the northern 17g end that has been used as a snow dump, not the western side?

Isn’t the ditch that drains A hydrologic reconnaissance study indicated that towards the wetlands on the the ditch on the east side of the lake was not east side? At the public connected to Tina Lake. See the Tina Lake meeting there was a poster Hydrology Memo in Appendix D. The stand pipe with statement that a “storm elevation will be set to the existing elevation. No drain” would be repaired impacts are anticipated as a result. rather than any reference to 17h the stand pipe being relocated and re-established. The statement at the public meeting did not disclose the impact of the standpipe on lake water levels.

Page 3.2-3: Complete the Statement added. description of where water goes from the storm drain leaving Tina Lake, i.e., that it “eventually flows into Campbell Creek which flows 17i into Knik Arm, a navigable, tidally influenced water body.” This completes the hydrologic connection necessary for Federal Corps jurisdiction.

Pages 3.2-3 and 3.2-4, For clarity and ease of reading for the average Environmental Consequences: reader, the No Action impacts are discussed Organization confusing, i.e., together and the Proposed Action impacts are kept the alternating back and forth together. between discussions of 17j Campbell Creek and Tina Lake. Again integrating discussion of Tina Lake’s wetlands and water body would be helpful.

Clarify statement at end of No That sentence has been removed from the EA. Action Paragraph: “the lake level would be lower than 17k intended;” note that it would be lower than intended when stand pipe was installed.

Under Proposed Action for Originally, the water level was going to increase. Tina Lake it would help to Based on potential adverse flooding impacts, the integrate the two paragraphs: water level in Tina Lake will now be kept at the state that the road would fill existing level. The resulting lake would be in 0.8 acres of the lake, but approximately 2.4 acres. The current elevation 17l that re-establishment of the model does not contain enough detail to generate stand pipe would increase the an accurate representation of the new lake level. water level by approximately 4 feet and describe the new areal extent of lake.

4.0-14 West Dowling Road Connection Project – November 2007 October 2006 Consultation and Coordination

The statement (top of page The lake level will be kept at the existing elevation 3.2-4) that “Property impacts which is below the 100 year flood elevation. The are not anticipated as the lake MOA requires the lowest inhabited floor of a level is being restored to a building to be elevated 1 foot above the 100 year historical elevation.” should flood elevation. describe and have illustration to show the extent of the new 17m flooding; this lake level has not existed in recent past and the change may be hard for some businesses even if it corresponds to the 1973 Flood Elevation.

Page 3.2-4, Construction: The proper use of BMPs should prevent More is needed on how water construction related impacts to water quality. quality of Tina Lake and Construction impacts on water quality are Campbell Creek would be discussed in Section 3.4 Water Quality. protected. In particular with Tina Lake, the road will be There are several possible construction techniques built right through it. that could be used to construct the road through Tina Lake. The construction method will not be decided until during design. Potential methods involve winter construction and dewatering the lake. Construction impacts associated with the removal of the bridge is not anticipated. The existing riprap will not be removed and new riprap 17n is not anticipated. A trench filled revetment adjacent to the trail is planned. Proper BMPs will be followed to prevent construction related impacts to water quality. BMPs such as erosion control, matting, temporary seeding, covering stockpiles, inlet protection, stabilized construction entrances, silt fences, straw wattles, etc. will be implemented during construction to protect water quality.

DOT&PF will continue to coordinate with USACE and other regulatory agencies during the design and permitting phases of the project.

Page 3.2-4, Mitigation: The Sentence removed. new stand pipe would help keep water over a broader area and would make the lake 17o deeper, but it would not be necessary “to keep water in the lake longer.”

More discussion is needed as DOT&PF will work with resources agencies during to whether grasses should be design to determine the best embankment planted along the new stabilization materials. shoreline of Tina Lake. The Also see the response to comment 19c. steep sides of the new road embankment would have to be stabilized; there plantings of grasses would be appropriate. Sedges would be more desirable than grasses on the 17p edges of the lake; it is possible that local seed/root sources would be more desirable than imported nursery stock. The new stand pipe would likely cause much existing vegetation to become inundated; perhaps some of that could be transplanted.

Page 3.3-3, top of page: “The increased costs are due to needing to 17q describe how it is that construct a longer bridge.“ added to EA.

West Dowling Road Connection Project – November 2007October 2006 4.0-15 Consultation and Coordination projects costs would increase by $6.5 million.

Page 3.3-3. fourth para. It “The impacted area of the floodplain is not would be helpful to state that wetlands.” added to EA. 17r these impacts areas of the flood plain are not wetlands.

Note that “flood plain” as a Noted. noun; “floodplain” as an adjective. Same practice for 17s “water body” and “stand pipe.”

Page 3.3-5, Construction: Page 3.4-4 discusses of water quality impacts More discussion needed about during construction. DOT&PF will follow the DEC how water quality will be permit process and use appropriate BMPs. protected. Statements should be made about how siltation 17t would be controlled; restriction of operation, storage, and maintenance of equipment, locations of stockpiles.

Page 3.4-3, Reference is made Comment noted. to runoff being directed into the wetlands surrounding Blueberry Lake. Great care must be taken that the proposed biofiltration swale is 17u effective in filtering sediments and pollutants; Blueberry Lake is now publicly owned; it was purchased with mitigation funds and is protected by a conservation easement.

Similarly, the need for Biofiltration swales are acceptable BMPs for additional water in Tina treating stormwater runoff. DOT&PF will comply Lake/wetland complex much with DEC requirements for stormwater treatment. be weighed against the Maintenance of BMPs will be conducted as possible addition of sediment appropriate. and other pollutants from road runoff. This proposed biofiltration swale must be monitored for its effectiveness 17v in trapping sediments and other pollutants. Would these swales at Blueberry Lake and Tina Lake ever be cleaned; during high water events, would be pollutants be remobilized and wash into the lakes?

As noted elsewhere, the text Water will be treated prior to entering Tina Lake. on the greater residence time Please see response to comment 20c of water in Tina Lake makes it sound as though it functions like a sedimentation pond to 17w treat water before it enters a storm drain system. Tina Lake should be receiving clean water.

Page 3.4-4, Campbell Creek to Biofiltration swales are acceptable BMPs for Old Seward Highway: similar treating stormwater runoff. DOT&PF will comply 17x concerns about the with DEC requirements for stormwater treatment. effectiveness and maintenance

4.0-16 West Dowling Road Connection Project – November 2007 October 2006 Consultation and Coordination of biofiltration swale draining into Campbell Creek.

Page 3.4-4, Construction: Most of the ground-disturbing activity will involve Construction of new segments fill. Cuts will be minimized. DOT&PF will require of Dowling will likely have the contractor to construct the project in full massive areas of exposed soil compliance with the NPDES Construction General surface; while the recent C Permit (CGP). The CGP requires the stabilization Street extension was of all areas where work has been temporarily or complicated by the surcharge permanently ceased for 14 days. operation, silt curtains were not found to be effective in many areas to control the erosion/siltation associated with construction. Piles of dirt 17y were not vegetated or otherwise stabilized within 2 weeks. As noted in the text, approximately 28 acres of ground-disturbing activity will occur. At least a Tina Lake, a plan probably involving a sedimentation pond must be put in place to allow silt to settle out from the large cut and fill operation.

Page 3.4-5, Arctic Boulevard Storm water will be treated by biofiltration swales to C Street, second and third prior to entering wetlands and Tina Lake. para.: Focus of water quality DOT&PF understands that untreated stormwater concerns seems to be on water cannot be discharged directly into waters of the 17z quality of what enters the U.S. storm drain but the wetlands and Tina Lake are treated like a sedimentation pond.

Page 3.6-1, Vegetation: Noted. Consider differentiating white spruce (generally upland) and 17aa black spruce (generally wetland).

Reference is made to primarily The water level in Tina Lake will not rise. removing vegetation in the DOT ROW. Raising the water level of Tina Lake, while 17bb desired as mitigation, would also have impacts on the vegetation that is there now.

Page 3.6-2, Figure 3-10: What Vegetation was mapped based on air photo is the standard for being interpretation from multiple air photos. Some “vegetation” since several vegetation shown in the project’s air photo has 17cc areas that are vegetated are been removed since the photo was taken. No field not marked green. verification was performed. This was an attempt to quantify impacts.

Page 3.7-1, Existing Dates added. Conditions: Add date of pjd (1/18/06) and Corps’s jd 17dd (2/14/06).

Second para: Which wetlands The statement “There are no non-jurisdictional that would be impacted by wetlands being impacted by the Proposed Action.” 17ee project area considered added to EA. isolated by the Corps?

Add wetland that is southeast The material provided did not provide sufficient 17ff of the former Alaska Seafood detail to locate this wetland. Please refer to Memo

West Dowling Road Connection Project – November 2007October 2006 4.0-17 Consultation and Coordination plant; it is U4 (Anchorage to File dated March 6, 2007. A site visit by an HDR General Permits, Special wetland scientist conducted on June 7, 2007 did Public Notice 2005-5, west of not find any unmapped wetlands in this area. See Rovenna); it was described in the response to comment 17nn. the materials sent by the Corps in its jurisdictional determination.

Page 3.7-2: The debit/credit Text changed. calculation won’t be finalized until later in the permitting process; however, the figure of 1.51 debits given on this page is different from the 2.06 debits described is different 17gg from the 2.06 debits described in 12/15/06 HDR Memorandum on this subject in Appendix E, Wetlands. The range in credits in that memorandum is described as being 1.68 to 3.15.

Page 3.7-3, Figure 3.13: The The colors are the same. The colors may appear colors of wetland classes in slightly different outside the study area due to the 17hh the legend are not the colors mask used to highlight the study area. on the aerial photo.

Page 3.7-4, Ponds: Note the Comment noted. definition of a “pond.” The Anchorage Wetlands Management Plan (p. 42) refers to “water bodies” which have a permanent minimum surface area at ordinary high water of more than 2,500 square feet. This size corresponds to the smallest 17ii water body which can be used, under normal circumstances, for nesting by more than one species or several pairs of one species of local Anchorage area water birds. This terminology has been used also in the Anchorage Debit/Credit Method.

Page 3.7-6, Construction: Construction impacts to water bodies are discussed Wouldn’t construction at Tina in Section 3.2 Water Bodies. Lake have to be in open water? No mention is made of that or 17jj how the rest of Tina Lake would be protected.

Page 3.8-2, Environmental Tina Lake is not addressed in this section because Consequences. Clarify that no there are no fish in Tina Lake as stated on page work will be done below the 3.8-1. ordinary high water line 17kk (OHW) of Campbell Creek; work will be done below OHW of Tina Lake.

Page 3.21-4: Unclear Title changed to Proposed Local Transportation statement: Boniface Parkway Improvements 17ll is being extended to parallel Tudor Road.” Further, it should be clarified that these

4.0-18 West Dowling Road Connection Project – November 2007 October 2006 Consultation and Coordination road project are being proposed as possible actions.

Page 3.21-7, the impacts to “The Proposed Action requires filling a portion of water bodies like Tina Lake Tina Lake and would contribute to a cumulative should be discussed in loss of water bodies in the Anchorage Bowl.” 17mm conjunction with the wetland Added to text. impacts.

Draft Permit Application: The The permit application will be updated prior to drawings are not adequate. submitting the permit application. Drawings should be provided that identify length, width, A wetland scientist re-visited the area on June 12, depth of excavation and fill in 2007. They were unable to identify any wetlands waters of the United States. that needed to be added. For more information on The small area of wetlands their findings, please see the trip memo in near the old Seafood Plant Appendix E. They spoke with Mary Lee Plumb- (U4) needs to be added. A Mentjes and she verbally accepted their findings. A drawing should be added copy of the memo was also mailed to her. showing how the new bridge over Campbell Creek will not See the response to comment 17ff. impact waters of the United States. At Tina Lake, information should be 17nn provided about how the unusual (i.e., in water) construction work will be managed to minimize degradation of Tina Lake. Drawings should be added about the biofiltration swales into Blueberry Lake, Tina Lake, and Campbell Creek, showing their location and dimensions. Additional information should be provided on how these swales would be maintained.

Jonathan The National Marine Fisheries Comment Noted. Taylor Service (NMFS) has reviewed NMFS the 01-09-2007 West Dowling Road (01092007_e Connection Project. The mail_NMFS) described action will not em result in any adverse effect to Essential Fish 18 Habitat (EFH). No EFH Assessment is required and NMFS does not offer any EFH Conservation Recommendations. Further EFH consultation is not necessary. NMFS has no objection to the project.

Weiss, Ed Fish Habitat Issues As discussed in a meeting on February 1, 2007, DNR-OHMP Campbell Creek, AWC# 247- because of potential negative impacts to modifying 01-15-2007 60-10340 has been specified as the stream channel, no work will be performed (01152007_le being important to the below ordinary high water (OHW). The existing tter_OHMP) spawning, rearing or migration bridge abutments can be removed without needing Em of anadromous fish under AS to perform work below OHW. No Fish Habitat 41.14.870(a). Campbell Creek Permit is anticipated. 19a supports king, coho and pink salmon spawning, coho and The existing bridge structure does not constrict king salmon rearing as well as the channel. Removal of the boulders may have a resident Dolly Varden. OHMP negative impact on fish so removing them is not is please to see that anticipated. ADOT&PF is incorporating a replacement bridge over Trench fill revetments are planned to protect the Campbell Creek. However, the Campbell Creek Trail from stream bank erosion.

West Dowling Road Connection Project – November 2007October 2006 4.0-19 Consultation and Coordination EA understates the potential For more information on the revetment, please see impacts to Campbell Creek for page 3-8.2. the bridge removal and construction. As the EA notes, the existing riprap boulder protection is within the stream, the bridge abutments are in close proximity to the stream and the structure constricts the channel. Removal of the old bridge abutments will impact the stream banks of Campbell Creek. The riprap, abutments and fill that is currently constricting the channel will need to be removed and the stream banks restored. As part of this restoration the streambanks under the bridge and any streambank areas adjacent to the bridge disturbed during construction need to be revegetated with native riparian vegetation. OHMP Fish Habitat Permits will be required for the above activities.

The proposed action also calls No new outfalls or downfalls into Campbell Creek for the stormwater between are anticipated. Stormwater will be routed through Cordova Street and the Old the existing stormdrain system. Coordination with Seward Highway to be routed DNR-OHMP and other resource agencies on the into “biofiltration treatment project design will continue throughout the design swales” and then drained into phase of the project. For more information on Campbell Creek. The stormwater, please see Section 3.4. placement of any outfalls or downdrains into Campbell 19b Creek for the discharge of storm water will also require an OHMP Fish Habitat Permit. OHMP would appreciate the opportunity to review the proposed treatment facility and discharge plans to ensure fish habitat is adequately protected.

Wildlife Issues The resource agencies are not in agreement on this Tina Lake. The proposed plan issue. DOT&PF will work with resources agencies represents a good compromise during design to determine the best embankment that takes into account most stabilization approach. The goal will be to provide of the prior concerns a treatment that enhances habitat values, but regarding minimization of fill reduces wildlife hazards. within Tina Lake and its associated wetlands and Please see the response to comment 17p. restoring its wetland and palustrine values. However, there are a few additional 19c issues that may need to be addressed in final designs. The EA notes the use of Tina Lake by mallards and assumes use by other common Anchorage area waterfowl. Tina Lake is also known to be used frequently by Canada geese. Revegatation of the new Dowling Road embankment along the north edge of Tina Lake with grasses will likely

4.0-20 West Dowling Road Connection Project – November 2007 October 2006 Consultation and Coordination attract geese to the road embankment for feeding and loafing. This will increase the likelihood of geese crossing the road and being struck or causing vehicular accidents as drivers try to avoid them. Additionally, muskrat use of the roadbed may be a concern. Alternative treatments for the embankment along Tina Lake should be looked at to maximize habitat value along the lake shoreline while minimizing attracting wildlife to the embankment and roadway corridor. Along with the modified embankment treatment the proposed culvert connecting Tina Lake with the north wetlands could be oversized to encourage geese or other wildlife to use it as a travel corridor rather than crossing the road.

Campbell Creek Bridge. The See letter from DOT dated February 16, 2007 and proposed 12 foot clearance on memo from DNR-OHMP dated March 6, 2007. the bridge is not adequate for the passage of moose as noted Clearance under the bridge will be approximately in the EA. Literature reviews 10 feet. and local information gathered by the ADF&G since 2004 Increasing the clearance by increasing the roadbed indicate that a minimum of 13 elevation is not practical because it would result in feet clearance be provided for substantially more relocations and right-of-way moose crossings. Additionally, acquisition. This would increase the project costs snow pack accumulation, snow by approximately $3.1 Million and would result in berms from road clearing, 13 more household relocations. overflow icing and noise from overhead traffic can restrict Modifying the ground elevation is undesirable moose utilization of these because, to provide 14 feet of clearance, the new crossings. Based on these ground elevation would be below the water level of more recent information the Campbell Creek. ADF&G & OHMP recommend that at least 14 feet of Utilizing a narrower girder depth will be evaluated 19d clearance be maintained for during design to see if additional clearance can be moose passage. This is obtained. consistent with clearances provided on crossing of DOT&PF will continue to coordinate their Campbell Creek at Abbott activities with OHMP during the design phase. Loop Extension and recommendations made for crossings of Campbell Creek on the New Seward Highway project. The 14 foot clearances are needed to minimize disruptions to moose transit routes and habitat fragmentation. The bridge should also be centered over the stream to allow wildlife to cross under the bridge along either bank of the stream.

It might also be useful to It is anticipated that the trail elevation will be set place the trail a foot or two at the 10 year flood elevation. Increasing the trail higher than the adjacent elevation will reduce the clearance under the 19e stream banks. Utilizing this Campbell Creek bridge. The trail is located concept may allow for some adjacent to the bridge abutment to provide some separation between trail users separation between the trail and the creek. In and wildlife and keep the trail addition, a trench filled revetment is planned to

West Dowling Road Connection Project – November 2007October 2006 4.0-21 Consultation and Coordination drier during flood flows and protect the trail from erosion. icing. Both banks should be Banks will be revegetated to the extent practicable revegetated with riparian as vegetation will not grow under the bridge. vegetation.

Habitat Fragmentation. The The word “marginal” has been removed. EA also understates the Some of the existing habitat near the Change Point importance of the remaining Church has already been removed due to the undeveloped patches of construction of a recreation facility or will be forested land particularly removed in the near future as part of the MOA’s those in the area west of Tina 68th Avenue project. Lake. The Campbell Creek greenbelt, Tina Lake, and The vegetation near the ChangePoint Church being undeveloped patches of removed as part of this project was not identified forested land in the area are as an important wildlife habitat in Anchorage 2020. important wildlife habitat. Other areas in the vicinity, including Blueberry The patch of forested habitat Lake and Connors Bog were identified as important east of the Change Point wildlife habitat. Church facility (old seafood plant) and north of Raspberry An additional description of impacts to habitat in the Rovenna Street area is fragmentation has been added to page 3-9.2. significant to moose. Moose use the area for feeding and resting and it is a key link in their movement corridor. The 19f project will eliminate or permanently alter this block of habitat. These patches of habitat provide important transit and connectivity links between large blocks of natural habitat such as Kincaid Park to the west and Bicentennial and Chugach State Park to the east. Additionally, these patches provide some of the only remaining habitat for wildlife in an area that is highly developed, making them more important for the species inhabiting them. They should not be characterized as marginal habitat.

Pg. 1-5 thru 1-6. Permit and As no work will be done below Ordinary High Authorization references Water, a Fish Habitat Permit is not required. should be updated to include OHMP Fish Habitat Permits 19g required for the Campbell Creek Bridge crossing removal, construction and bank restoration.

Pg. 2-2 & Pg. 3.5-3. The The existing bridge provides approximately 6 feet proposed action calls for the of clearance. The replacement bridge will not bridge to have a 12 foot create a new disruption to wildlife transit routes. clearance above the creek While a higher bridge may be desirable, the banks and notes there will be proposed 10-foot bridge will be an improvement “no disruptions to wildlife over the existing condition. Moose are known to 19h transit routes”. As noted utilize crossings as low as 10 feet. The new bridge above a 14 foot clearance is should improve moose transit through the area. needed to minimize disruptions to moose transit routes and habitat fragmentation.

Pg. 3.8-2 & Pg. 6.0-1. Text updated. References the Catalog of 19i Waters Important for the Spawning, Rearing or

4.0-22 West Dowling Road Connection Project – November 2007 October 2006 Consultation and Coordination Migration of Anadromous Fishes (ADF&G 1998). The Catalog and Atlas have been revised three times since the 1998 revision. The current revision of the document because effective September 15, 2006.

Pg. 3.8-3. Notes that to the Vegetation will not grow under the bridge. Areas extent practicable the stream where vegetation will survive will be reseeded or banks would be reseeded or replanted with riparian vegetation. replanted to maximize the amount of riparian vegetation near the bridge. Recommend 19j removing the phrase “to the extent practicable” and state that the stream banks will be revegetated with riparian vegetation.

Pg. 3.7-6. Notes that “Temporary staging areas would not be located construction related impacts within the riparian buffers of Campbell Creek.” may include temporary fill, Added to section 3.8 vegetation removal and degraded water quality and staging areas (temporary storage areas) and 20 feet beyond the cut and fill prism. 19k It also notes that these staging areas will not be placed in wetland areas. We recommend that these temporary staging areas also not be located with the riparian buffers of Campbell Creek.

Pg. 3.8-1 through 3.8-4. Per No stream bank restoration or bank revegetation the above comments the under the bridge. No OHMP permit is anticipated. project description, environmental consequences, construction, mitigation and authorization sections need to 19l be updated to include the Campbell Creek impacts and benefits from removal of the old bridge, stream bank restoration, the revegetation of the banks, and the need for OHMP permits. Pg. 3.9-1 Per above comments The word “marginal” has been removed. revise reference to marginal 19m wildlife habitat.

Pg. 3.9-2. Notes that the Approximately 3.7 acres of vegetation will be project would increase habitat removed. The Campbell Creek Greenbelt is crossed fragmentation but the EA does by an existing road. An additional description of 19n not identify or quantify this habitat fragmentation has been added to page 3- fragmentation. 9.2.

Pg. 4.0-1. Text regarding The appendices to the EA were provided consultation and coordination electronically to reduce printing costs and to be references the Scoping more environmental friendly. Summary Report produced by HDR as being included in The title of the Section 4(f) appendix has been 19o Appendix B. The Scoping changed. Summary Report and Scoping Summary Report Appendices which contained all the agency and public comments was not

West Dowling Road Connection Project – November 2007October 2006 4.0-23 Consultation and Coordination included in the paper copy of the document that we received. This coupled with the Section 4(f) Appendix A (subtitled “Copies and summary of all formal coordination connects received”) at the rear of the document gives the impression that the 4(f) comments are the only scoping comments received. The additional scoping materials should be included in the EA.

Ashton, Page 3.2-4. Add more Measures to protect water quality are discussed in William discussion about construction Section 3.4. Water Quality. DEC through Tina Lake. Include a There are several possible construction techniques 01-31-2007 description of the techniques that could be used to construct the road through (013107_lette used to protect the portion of Tina Lake. The construction method will not be r_DEC) the lake not filled. Include a decided until during design. Potential methods ltr description of techniques used involve winter construction and dewatering the to protect water quality during lake. Construction impacts associated with the removal of the existing bridge removal of the bridge is not anticipated. The 20a and riprap at Campbell Creek existing riprap will not be removed and new riprap and installation of the new is not anticipated. A trench filled revetment bridge and riprap. adjacent to the trail is planned. Proper BMPs will be followed to prevent construction related impacts to water quality. BMPs such as erosion control, matting, temporary seeding, covering stockpiles, inlet protection, stabilized construction entrances, silt fences, straw wattles, etc. will be implemented during construction to protect water quality.

Page 3.3-5. Add more No potential impacts are anticipated. As part of discussion about the potential the floodplain permit process, an engineer will impact of the road fill on confirm that the fill will not have an adverse 20b Campbell Creek just impact on the floodplain. downstream of the bridge.

Page 3.4-3. The proposed Water will be treated prior to entering Tina Lake. biofiltration swale should be Additional text has been added to the EA. Please sized such that water is refer to comment 17w. treated fully before flowing 20c into Tina Lake. Tina Lake is not a sedimentation pond for road runoff.

Page 3.4-4. Proper use of Text changed to “Short-term impacts to water BMPs should prevent quality are expected due to construction activities. construction related impacts Construction may require excavation of some soils to water quality, thus and replacement with imported granular fill preventing an increase in materials. Proper use of BMPs would minimize sedimentation in Tina Lake construction related impacts to water quality. This and Campbell Creek. would also prevent an increase in sedimentation 20d within Tina Lake and Campbell Creek. BMPs that may be used to protect water quality in Tina Lake include winter construction, dewatering the lake or the use of floating boom supported silt fence. The project involves approximately 28 acres of ground- disturbing activities.

Page 3.7-6. Add more More discussion added. discussion about construction 20e through Tina Lake.

For the Corps 404 application, The permit application will be updated prior to please include a description of submitting the permit application. 20f how the rest of Tina Lake will be protected during the fill to

4.0-24 West Dowling Road Connection Project – November 2007 October 2006 Consultation and Coordination the northern side of the lake. Include a description of proposed measures to protect water quality during reconstruction of the Campbell Creek bridge. Also, include drawings of all the biofiltration swales on the project showing their locations, dimensions and anticipated maintenance schedule. Schanche, MOA will need to review plans The DOT&PF will submit plans and specifications Lori and specifications prior to to the MOA for review in accordance with standard MOA construction, especially as protocol. Traffic construction relates to the Department greenbelt and trail area. 21a Non- Motorized Transportati on Coordinator Please ensure that MOA staff The existing trail will need to be closed during the from this office and Parks and construction of the connections between the Recreation is given adequate Campbell Creek Trail and Dowling Road. All trail notice of proposed trail shutdowns will be coordinated with the MOA. shutdowns and detours for our coordination and approval. 21b We expect that since this is a new section of trail that is being constructed the only shutdowns will be at the points this trail meets the existing trail.

Be advised that no No construction equipment or contractor vehicles construction equipment or will be allowed to park in the trail or greenbelt contractor vehicles will be area without prior permission from the MOA. 21c allowed to park within the Construction equipment and vehicle parking will trail or greenbelt area. be allowed in the ROW.

Creation of a trailhead as So noted. mitigation for use of LWCF 21d property is a plus to the Municipality and trail users.

Boots, Dan With the exception of Dowling The project assumed the Dowling Road/C Street MOA Road and C Street, I was intersection was signalized and identified the Traffic unable to identify any impacts accordingly. Engineering proposed signalized Division intersections which may be The need for any other signalized intersections required as a result of this will be evaluated during the design phase of the project. Will the addition of project. 22a signalization affect Air Quality, ROW acquisitions, and other aspects of the Environmental Assessment? Are there signal removal possibilities along C Street as a result of this project?

ROW acquisition for the 59th So noted. Avenue / Arctic Blvd connector should be sufficient 22b to accommodate an Industrial Collector with pedestrian facilities.

Carr, Bruce ‘C’ Street will be a grade- EA changed to reflect the current status of this 23a ARRC separated crossing putting the project in the LRTP.

West Dowling Road Connection Project – November 2007October 2006 4.0-25 Consultation and Coordination 01-31-07 road over the railroad tracks (013107_lette affecting both 68th and ‘C’ r_arrc) streets. This project is Em programmed in the 2025 Long- Range Transportation Plan as a “long-term” project.

Figure 2.4 shows a single Figure revised. track, there are currently two tracks and bridge length needs 23b to allow room for a third track to accommodate future growth of the Alaska Railroad.

The proposed bridge over the The clearance is 23 feet. Text corrected. railroad tracks calls for a 22 foot clearance height above 23c the tracks (TOR) AREMA Standard requires 23 feet.

Crossing signals and gates “Crossing signals and gates are likely to be will probably require relocated to accommodate the bridge over the 23d relocation to accommodate the ARRC tracks.” Added to section 3.14 bridge structure.

When ‘C’ Street crossing The sentence “The bridge over Arctic Boulevard becomes grade separated, will be designed to not preclude the possibility of current 80-car gravel consists reconfiguring the railroad crossing or relocating could dump at QAP without Arctic Boulevard” Added to section 3.14 decoupling. ARRC is contemplating moving to 100 23e plus car trains which will require decoupling at the Arctic crossing to avoid blocking traffic. Hence we believe a discussion closing the Arctic Boulevard road-rail crossing is warranted.

On February 1, 2007, DOT&PF met with DNR-OHMP to discuss their comments regarding the Campbell Creek bridge. The first topic discussed at the meeting was work below OHW in Campbell Creek. OHMP’s comments caused the project team to believe OHMP was anticipating work to be performed below OHW. However, based on recommendations from HDR hydrologists, the proposed project was developed to avoid working below OHW. A hydrologist was at the meeting to explain the reasons behind the recommendation. OHMP agreed there was some merit to the hydrologist recommendation. OHMP still had some reservations about some statements contained in the EA. It was agreed that these statements would be revised.

The second topic of the meeting was the Campbell Creek bridge. The original EA reported the bridge had 12 feet of clearance when it only had 10 feet. OHMP’s position was that 14 feet of clearance would be needed for moose passage. At the meeting, OHMP and DOT&PF discussed possible ways to increase the clearance. It was agreed that DOT&PF would look at ways to increase the clearance. Once DOT&PF transmitted their findings to OHMP, they would have additional time to comment on this issue.

DOT&PF considered lowering the ground on the west creek bank and reducing the size of the bridge girders to increase the clearance under the

4.0-26 West Dowling Road Connection Project – November 2007 October 2006 Consultation and Coordination bridge. Neither option was preferred by DOT&PF over the bridge currently included in the Preferred Action. Providing more clearance that the 10 feet provided by the proposed bridge will be explored during the design phase of the project. DOT&PF will continue to coordinate their activities with OHMP during the design phase. Meeting minutes and related correspondence are included in Appendix L. A more detailed discussion of Campbell Creek bridge clearance is also included in Section 3.9 Wildlife.

Organizations that have been contacted about this project are listed below.

Federal Agencies ƒ National Oceanic and Atmospheric Administration, National Marine Fisheries Service ƒ U.S. Army Corps of Engineers, Regulatory Branch ƒ U.S. Coast Guard ƒ U.S. Environmental Protection Agency ƒ U.S. Fish and Wildlife Service ƒ Bureau of Land Management ƒ Federal Highway Administration ƒ National Park Service

State Agencies ƒ Alaska Department of Environmental Conservation ƒ Alaska Department of Fish and Game, Habitat and Restoration Division ƒ Alaska Department of Natural Resources, Office of Habitat Management and Permitting ƒ Alaska Department of Natural Resources, Office of History and Archaeology, State Historic Preservation Office ƒ Alaska Department of Transportation and Public Facilities

Local Agencies ƒ Municipality of Anchorage, Parks and Recreation ƒ Municipality of Anchorage, Project Management and Engineering ƒ Municipality of Anchorage, Traffic Department, Transportation Planning ƒ Municipality of Anchorage, Public Transportation ƒ Anchorage Fire Department/EMS (Emergency Medical Service)

Tribal Organizations ƒ Knik Tribal Council ƒ Cook Inlet Region Inc. ƒ Cook Inlet Tribal Council ƒ Eklutna, Inc. ƒ Native Village of Eklutna

Other Organizations ƒ Alaska Railroad Corporation

West Dowling Road Connection Project – November 2007October 2006 4.0-27 Consultation and Coordination ƒ Taku Campbell Community Council ƒ Alaska Center for the Environment ƒ Davis Constructors and Engineers, Inc. ƒ Central Paving Products ƒ Anchorage Citizens Coalition ƒ Chugach Electric Association ƒ Assembly District 4 ƒ Assembly District 3 ƒ Anchorage Chamber of Commerce

Appendix B includes a chronology of scoping activities.

4.0-28 West Dowling Road Connection Project – November 2007 October 2006 Consultation and Coordination 5.0 List of Preparers

This EA was prepared by HDR staff unless otherwise noted.

Function Key Personnel Education; Years Experience Environmental Project Michael Vanderhoof M.S., Environmental Studies; 14 Manager FHWA

Edrie Vinson M.A., History; 30 FHWA

DOT&PF Project Miriam McCulloch, PE B.S., Civil Engineering; 21 Management and DOT&PF Review

Document Review Jerry Ruehle B.S. , Wildlife Management; 25 DOT&PF Brian Elliott B.S., Environmental Science, B.S. DOT&PF Microbiology; 6

Project Manager Dan Simpson, PE B.S., Civil Engineering; 20

QA/QC Review John McPherson, AICP M.U.P., Urban Planning; 16

Conceptual Engineering Calex Gonzalez, PE B.S., Civil Engineering; 10 Lance DeBernardi, PE B.S., Civil Engineering; 16 John Sherk, PE B.S., Civil Engineering; 16 Sean Lecoultre, EIT B.S., Civil Engineering; 2 Melanie Baski, EIT B.S., Civil Engineering; 2

Traffic Engineering Michael Trueblood M.S., Civil Engineering; 15

Environmental Analysis Laurie Cummings, AICP M.U.P., Urban Planning; 8 Sirena Brownlee B.S., Biology; 8 Alivia Body B.S., Economics; 5 Sharon Wright, AICP M.S., Plan Sciences; 7

Geotechnical Analysis Shannon and Wilson

Historical & Cultural Michael Yarborough M.A., Archeology; 30 Resources Cultural Resource Consultants

Campbell Creek Dan Billman, PE M.S., Civil Engineering; 27 Hydraulics and Bob Butera, PE B.S., Civil Engineering; 27 Hydrology Analysis Jay Jeffries, EIT B.S., Environmental Engineering; 2

Essential Fish Habitat Paul McLarnon B.S., Aquatic Resource Analysis Management; 11 Patrick Blair M.S., Environmental Sciences; 10

West Dowling Road Connection Project – November 2007 November 2006 5-1 List of Preparers Wetlands Analysis Sirena Brownlee B.S., Biology; 8 Mac Salway M.S., Environmental Science & Engineering; 7

Air Quality Analysis Scott Zilka B.S., Meteorology; 12 Ed Liebsch M.S., Meteorology; 28 Dustin Watson M.S., Environmental Sciences/Studies; 15

Noise Analysis Tim Casey, QEP B.S., Biology; 16 Angela Gowan M.S., Geological Sciences; 13

GIS Mapping and Jill Crotwell B.S., Geology / Criminal Justice; 7 Analysis Laurie Cummings, AICP M.U.P., Urban Planning; 8 Alissa McMahon M.S., Environmental Science; 3 Charlie Barnwell M.S., Regional Planning; 25 Jon Schick IM.S., Environmental Science; 7

5-2 West Dowling Road Connection Project – November 2007 November 2006 List of Preparers 6.0 References

Alaska Department of Environmental Conservation. 2004. Water Quality Assessment and Reporting web site. Accessed at http://www.state.ak.us/dec/water/acwa/pdfs/0203integratedassess.pdf on May 27th, 2004. Alaska Department of Environmental Conservation. January 2006. Alaska’s 2004/2006 Integrated Water Quality Monitoring and Assessment Report: Public Review Draft. Accessed at http://www.dec.state.ak.us/water/wqsar/pdfs/draft2004_2006ir.pdf on May 10, 2006. Alaska Department of Fish and Game. 2006. 1998. Catalog of Waters Important for the Spawning, Rearing or Migration of Anadromous Fishes. Alaska Department of Fish and Game. 2004a. ADF&G Fish Distribution Database. Accessed at http://www.habitat.adfg.state.ak.us/geninfo/anadcat/awc_ims.shtml on June 10, 2004. Alaska Department of Natural Resources. 2004. Statewide Comprehensive Outdoor Recreation Plan. Accessed at http://www.dnr.state.ak.us/parks/plans/scorp/2004scorpweb.pdf on October 3, 2006. Alaska Department of Natural Resources. 2006. Alaska Coastal Management Program. Accessed at http://www.alaskacoast.state.ak.us/ on Sept. 20, 2006. Alaska Department of Transportation and Public Facilities. 1996. Noise Abatement Policy Alaska Department of Transportation and Public Facilities. 2004. Storm Water Pollution Prevention Plan Guide. Alaska Department of Transportation and Public Facilities, Municipality of Anchorage, and Anchorage Metropolitan Area Transportation Solutions. December 2005. Anchorage Bowl 2025 Long-Range Transportation Plan. Anchorage Economic Development Corporation. 2005. Anchorage’s Economic Drivers. Accessed at http://www.aedcweb.com/aedcdig/index.php?option=com_content&task=vi ew&id=75&Itemid=113 on October 9, 2006. Anderson, Cindy. Sept. 30, 2003. Personal communication to Miriam Tanaka, DOT&PF. Atkinson, K. May 24, 2004. Natural Resources Officer II. Alaska Department of Natural Resources, Division of Mining, Land and Water. Personal communication to Sirena Brownlee, HDR Alaska. Bosch, Dan. Sept. 7, 2004 Personal communication to Sirena Brownlee, HDR Alaska. Carrasquero, Jose. 2001. Overwater Structures: Freshwater Issues. Washington State

West Dowling Road Connection Project – November 2007 November 2006 6.0-1 References Transportation Center, University of Washington. Produced for the Washington State Department of Transportation. Conner, Joseph. June 10, 2004. U.S. Fish and Wildlife Service Biologist. Personal communication to Sirena Brownlee, HDR Alaska, about bald eagles in the project area. Cowardin, L. ., V. Carter, F.C. Golet, and E.T. LaRoe. 1979. Classification of Wetlands and Deepwater Habitats of the United States. Office of Biological Services, U.S. Fish and Wildlife Service, Washington, D.C. CRC. 2006. Determination of Eligibility for Four Houses Along Dowling Road. Detwiler, Sue. June 7, 2004. USFWS Endangered Species Coordinator. Personal communication to Sirena Brownlee, HDR Alaska, about USFWS listed species. Federal Emergency Management Agency. 2004. Flood Insurance Rate Map. Accessed at http://store.msc.fema.gov on June 7, 2005. Federal Highway Administration. 1989. FHWA Functional Classification Guidelines. Accessed at http://www.fhwa.dot.gov/planning/fcsec3_4.htm on Sept. 12, 2006. Helfinstine, J.N. May 10, 2005. Chief, United States Coast Guard Chief Bridge Section. Personal communication to Sirena Brownlee, HDR Alaska. HDR Alaska, Inc. 2004. Wetlands and Waterbodies Memorandum HDR Alaska, Inc. 2003 Scoping Summary Report: West Dowling Road Connection Project HDR Alaska, Inc. 2006. Air Quality Technical Report Dowling Road Extension HDR Alaska, Inc. August 2006b. Hydrology and Hydraulics Study for Campbell Creek. HDR Alaska, Inc. 2006c. Highway Traffic Noise Assessment HDR Alaska, Inc. 2005. Preliminary Jurisdictional Determination for the West Dowling Road Connection Project. Lance, Brian. May 26, 2004. National Marine Fisheries Service Endangered Species Biologist. Personal communication to Sirena Brownlee, HDR Alaska, about National Oceanic and Atmospheric Administration, National Marine Fisheries Service, listed species. Municipality of Anchorage. 1981. Anchorage Coastal Management Plan, Coastal Scenic Resources and Public Access Plan. Municipality of Anchorage. 1987. Anchorage Coastal Management Plan Program Document. Municipality of Anchorage. 1996. Official Streets and Highway Plan. Municipality of Anchorage. 1997. Areawide Trails Plan. Municipality of Anchorage. 2001. Anchorage 2020: Anchorage Bowl Comprehensive Plan. Municipality of Anchorage. 2004. Air Quality Website Accessed at

6.0-2 West Dowling Road Connection Project – November 2007 November 2006 References http://www.ci.anchorage.ak.us/healthesd/CO.cfm on July 28, 2004. Municipality of Anchorage. 2006. Accessed at http://www.muni.org/homepage/quickstats.cfm#mapson on Feb. 24, 2006. National Park Service. 2006. Land & Water Conservation Fund: Compliance Responsibilities & Legal Protection. Accessed at http://www.nps.gov/ncrc/programs/lwcf/protect.html on October 25, 2006. Plumb-Mentjes, Mary Lee. January 27, 2007. Memorandum for Record. USACE. Price Engineering. December 1980. Arctic Boulevard Storm Drain. Municipality of Anchorage File 1983-1860. Puff, Jack. June 1, 2005. Municipality of Anchorage. Floodplain Coordinator, Personal communication to Sirena Brownlee, HDR Alaska, about flooding. Quadra Engineering. February 1985. 1985 Storm Drain Improvements. Municipality of Anchorage File 1993-33. Seaberg, Steward. June 10, 2004. Alaska Department of Fish and Game. Habitat Biologist. Personal communication to Sirena Brownlee, HDR Alaska. Shannon & Wilson. 2006. Revised Rough Order of Magnitude Cleanup Cost Estimate, Dowling Road Connection Project. Shannon & Wilson. 2004. Initial Site Assessment: Dowling Road Extension. Shannon & Wilson. 2005. Supplement to Initial Site Assessment: Dowling Road Extension. State of Alaska. 2005. ACMP Coastal Zone Management Boundaries. Office of the Governor; Division of Governmental Coordination, Juneau, Alaska U.S. Environmental Protection Agency. 1992. Storm Water Management for Construction Activities: Developing Pollution and Prevention Plans and Best Management Practices. Document 832 R-92-005, U.S. Census Bureau. 2006. Census 2000 Data for the State of Alaska. Available at http://www.census.gov/census2000/states/ak.html, accessed on Sept. 21, 2006.

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West Dowling Road Connection Project Programmatic Section 4(f)/6(f) Evaluation STP-0532(5)/55012

Prepared for: Federal Highway Administration Alaska Division

On Behalf of the Sponsor Department of Transportation and Public Facilities Central Region

Prepared by: HDR Alaska, Inc. 2525 C Street, Suite 305 Anchorage, Alaska 99503-2632

November 2007 October 2006

Table of Contents

1. INTRODUCTION...... 1 1.1 Basic Requirements of Section 4(f) and Section 6(f)...... 2 1.2 Definition of the Net Benefits 4(f) Programmatic Evaluation ...... 2 1.3 Applicability of the Net Benefits 4(f) Programmatic Evaluation ...... 2 2. ALTERNATIVES...... 3 2.1 Proposed Action...... 3 2.2 Alternative Considered but Not Carried Forward...... 5 2.3 Avoidance Alternatives...... 6 2.3.1 No Action Alternative...... 7 2.3.2 No 4(f) Property on the Existing Alignment ...... 7 2.3.3 Alignment at a New Location...... 8 3. SECTION 4(f) PROPERTY...... 8 3.1 Detailed Map of the Property...... 9 3.2 Size of the Property...... 9 3.3 Ownership and Type of Property ...... 9 3.4 Function of Property and Available Activities ...... 9 3.5 Description and Location of all Existing and Planned Facilities of the Property...... 11 3.6 Access and Use of the Property ...... 12 3.7 Relationship of the Property to Other Similarly Used Lands in Vicinity...... 12 3.8 Issues Affecting the Ownership or Use of the Property ...... 12 3.9 Unusual Characteristics of the Property...... 12 3.10 Section 6(f) of the Land and Water Conservation Fund Act Applicability...... 12 4. IMPACTS ...... 13 5. NET BENEFIT ANALYSIS ...... 16 5.1 Minimization...... 16 5.2 Mitigation, Enhancement, and Beneficial Measures...... 17 6. COORDINATION ...... 19 6.1 Coordination with MOA ...... 19 6.2 Coordination with ADNR...... 19 6.3 Coordination with the Public...... 19 7. CONCLUSION...... 19 8. REFERENCES ...... 21

Appendix A Copies of all formal coordination comments and a summary of other relevant comments.

West Dowling Road Connection Project – November 2007October 2006 i Section 4(f)/6(f) Evaluation

1. INTRODUCTION The Alaska Department of Transportation and Public Facilities (DOT&PF) is proposing to extend and reconstruct Dowling Road from the Old Seward Highway to Minnesota Drive. This project will improve roadway connectivity and accessibility in the West Dowling Road area of the Municipality of Anchorage (MOA).

This evaluation discusses the Section 4(f) issues associated with the West Dowling Road Connection Project. The Proposed Action evaluated in the West Dowling Road Connection Project Environmental Assessment (EA) will require the use of Section 4(f) property. Because the Section 4(f) properties are directly adjacent to the existing Right- of-Way (ROW) and on both sides of Campbell Creek, there are no feasible and prudent alternatives to using these properties. The West Dowling Road Connection Project is being developed to improve (i.e., provide a net benefit to) the affected Section 4(f) properties. As a result, the guidance governing “Section 4(f) Evaluation an Approval for Transportation Project that Have a Net Benefit to a Section 4(f) Property” (referred to hereafter as the Net Benefits 4(f) Programmatic Evaluation) is being used to assess the impacts of the project.

The purpose of this Section 4(f) Evaluation is to provide the information required by the Secretary of Transportation to make the decision regarding the use of properties protected by Section 4(f) and/or Section 6(f) legislation under the Proposed Action selected in the West Dowling Road Connection Project EA.

This Section 4(f) Evaluation describes all identified Section 4(f) and/or Section 6(f) properties which are proposed to be “used” under the Proposed Action, potential impacts on those properties, and possible mitigation measures to minimize impacts.

The Section 4(f) process requires that any impacts from use of a park, recreation area, historic site, or wildlife/waterfowl refuge for highway purposes be evaluated in context with the proposed highway construction/reconstruction activity. An inventory of these types of properties was completed based on a review of the design concept drawings and the project’s impacts on these properties was assessed. Based on the initial inventory and impact assessment, the following design modifications were implemented to minimize harm to Section 4(f) properties.

• Bridge lengthened to facilitate increasing the clearance of the Campbell Creek bridge. The increased clearance is sufficient for a grade-separated trail crossing. The increase clearance will also improve wildlife passage. • Bridge lengthened to increase the distance between the banks of Campbell Creek and the bridge retaining walls. • Providing trail connections between the Campbell Creek Trail and the Dowling Road sidewalk and pathway. • Constructing a trailhead adjacent to Foxtree Park.

West Dowling Road Connection Project – November 2007 October 2006 1 Section 4(f)/6(f) Evaluation 1.1 Basic Requirements of Section 4(f) and Section 6(f) The Section 4(f) legislation as established under the Department of Transportation Act of 1966 (49 USC 303, 23 USC 138) provides protection for publicly owned parks, recreation areas, historic sites, wildlife and/or waterfowl refuges from conversion to a transportation use. The FHWA may not approve the use of land from a significant publicly owned park, recreation area, or wildlife and waterfowl refuge, or any significant historic site unless a determination is made that:

• There is no feasible and prudent alternative to the use of land from the property; and • The action includes all possible planning to minimize harm to the property resulting from such use (23 CFR 771.135).

A “use” occurs (1) when land from a Section 4(f) site is acquired for a transportation project, (2) when there is an occupancy of land that is adverse in terms of the statute's preservationist purposes, or (3) when the proximity impacts of the transportation project on the Section 4(f) sites, without acquisition of land, are so great that the purposes for which the Section 4(f) site exists are substantially impaired (normally referred to as an indirect constructive use).

Additional protection is provided for outdoor recreational lands under the Section 6(f) legislation (16 USC 4602-8(f) (3)) where Land and Water Conservation Act (LWCA) funds were used for the planning, acquisition or development of the property. These properties may be converted to a non-outdoor recreational use only if replacement land of at least the same fair market value and reasonably equivalent usefulness and location is assured.

1.2 Definition of the Net Benefits 4(f) Programmatic Evaluation This nationwide programmatic Section 4(f) evaluation has been prepared for certain federally assisted transportation improvement projects on existing or new alignments that will use property of a Section 4(f) park, recreation area, wildlife or waterfowl refuge, or historic property, which in the view of the Administration and official(s) with jurisdiction over the Section 4(f) property, the use of the Section 4(f) property will result in a net benefit to the Section 4(f) property. This programmatic evaluation can be applied to any project regardless of class of action under the National Environmental Policy Act. A “net benefit” is achieved when the transportation use, the measures to minimize harm, and the mitigation incorporated into the project results in an overall enhancement of the Section 4(f) property when compared to both the future do-nothing or avoidance alternatives and the present condition of the Section 4(f) property, considering the activities, features, and attributes that qualify the property for Section 4(f) protection. Conversely, a project does not achieve a “net benefit” if it will result in a substantial diminishment of the function or value that made the property eligible for Section 4(f) protection.

1.3 Applicability of the Net Benefits 4(f) Programmatic Evaluation The applicability criteria for a Net Benefits 4(f) Programmatic Evaluation includes the following:

West Dowling Road Connection Project – November 2007 October 2006 2 Section 4(f)/6(f) Evaluation • The proposed transportation project uses a Section 4(f) park, recreation area, wildlife or waterfowl refuge, or historic site. • The proposed project includes all appropriate measures to minimize harm and subsequent mitigation necessary to preserve and enhance those features and values of the property that originally qualified the property for Section 4(f) protection. • For historic properties, the project does not require the major alteration of the characteristics that qualify the property for the National Register of Historic Places such that the property would no longer retain sufficient integrity to be considered eligible for listing. For archaeological properties, the project does not require the disturbance or removal of the archaeological resources that have been determined important for preservation in-place rather than for the information that can be obtained through data recovery. The determination of a major alteration or the importance to preserve in-place will be based on consultation consistent with 36 CFR Part 800. • For historic properties, consistent with 36 CFR Part 800, there must be agreement reached among the SHPO and/or Tribal Historical Preservation Officer, as appropriate, the FHWA, and the Applicant on measures to minimize harm when there is a use of Section 4(f) property. Such measures must be incorporated into the project. • The official(s) with jurisdiction over the Section 4(f) property agree in writing with the assessment of the impacts; the proposed measures to minimize harm; and the mitigation necessary to preserve, rehabilitate and enhance those features and values of the Section 4(f) property; and that such measures will result in a net benefit to the Section 4(f) property. • The Administration determines that the project facts match those set forth in the Applicability, Alternatives, Findings, Mitigation and Measures to Minimize Harm, Coordination, and Public Involvement sections of this programmatic evaluation.

Any project that satisfies these criteria may make use of the Net Benefits 4(f) Programmatic and will not require the preparation of an individual Section 4(f) Evaluation.

2. ALTERNATIVES

2.1 Proposed Action The Proposed Action is to construct a five-lane arterial road (four travel lanes and a center turn lane) connecting the Old Seward Highway to Minnesota Drive (see Figure 1). The Proposed Action includes a six-foot sidewalk and a 12-foot separated multi-use pathway along its entire length. The Proposed Action will upgrade the existing two-lane Dowling Road between the Old Seward Highway and B Street. Additional right-of-way is necessary to accommodate the additional lanes. The majority of the ROW will be acquired from the north side of the roadway. The intersection of Dowling Road and the Old Seward Highway will be reconfigured to accommodate the additional lanes. The intersection at Potter Drive will be reconfigured into a T-intersection. The intersections at A and B Streets will be reconfigured.

West Dowling Road Connection Project – November 2007 October 2006 3 Section 4(f)/6(f) Evaluation

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ProposedAction Stream Alaska Railroad Lake Figure 1. Proposed Action

Legend Study Area Park

West Dowling Road Connection Project – November 2007 October 2006 4 Section 4(f)/6(f) Evaluation

The existing bridge over Campbell Creek and the Campbell Creek Greenbelt is approximately 63 feet long, 28 feet wide and 6 feet above the creek banks. It will be replaced by a structure that is approximately 100 feet long, 92 feet wide, and 10 12 feet above the creek banks. The Campbell Creek trail will be redesigned so the trail goes under the Campbell Creek bridge instead of crossing Dowling Road at-grade. There will be trail connections from Dowling Road to the Campbell Creek Trail on both sides of the road. The Proposed Action will enhance the Campbell Creek Greenbelt by the creation of a trailhead.

Between B Street and Raspberry Road, a new 5-lane road will be constructed. A new intersection will be created at Dowling Road and C Street. This intersection will have right turn and dual left turn lanes in every direction. The existing trails paralleling C Street will be modified so trail users will cross at the intersection.

A new at-grade intersection will be created at C Street. The project will connect West Dowling Road to Arctic Boulevard via a two-lane collector road. A bridge will cross Arctic Boulevard and the Alaska Railroad mainline track.

The project will connect to 68th Avenue by creating a T-intersection. The intersections of 68th Avenue and Rovenna, Cheryl and Chad Streets, will be reconfigured.

2.2 Alternative Considered but Not Carried Forward Four other alignment concepts were considered but eliminated from further study in the EA for several different reasons. These concepts are: • Raspberry Dowling • S Curve • Frontage Road • Rovenna Frontage

The Raspberry Dowling concept would involve extending Dowling Road from its existing terminus at Potter Drive to Arctic Boulevard. Raspberry Road would be extended east from Minnesota Drive to C Street. North-south traffic movements would use Arctic Boulevard and C Street. This concept did not meet the project’s purpose and need because it: • Did not provide continuous east-west connectivity • Did not reduce congestion and poor levels of service on adjacent and parallel arterials. • Did not improve accessibility to the Industrial Reserve.

The S Curve concept would connect Raspberry Road to Dowling Road with a reverse curve. The curve would link the intersection of Dowling Road and C Street to Minnesota Drive via Raspberry Road. This concept was not recommended for further study for the following reasons: • Conflict with the Alaska Railroad mainline and spurs. • Substantial ROW impacts on developed property. • Lack of distinction from the Proposed Action. The S Curve concept is an alignment variation that has considerably higher costs (more ROW and longer bridge) and much greater impacts to land use and businesses.

West Dowling Road Connection Project – November 2007 November 2006 5 Section 4(f)/6(f) Evaluation

The Frontage Road concept would extend Dowling Road to a T intersection with a new frontage road that parallels Minnesota Drive. This frontage road, a four-lane, two-way road, would connect to Raspberry Road and International Airport Road. This concept was not considered prudent and feasible for the following reasons: • Lack of continuous east-west connectivity amongst north-south collectors and arterials. • Additional wetland impacts. This concept would affect wetlands adjacent to Blueberry Lake. • Intersection geometry problems at International Airport Road and Raspberry Road created by the two-way frontage roads. • Due to traffic volumes, a grade-separated crossing would be required at the intersection of International Airport Road and the frontage road. • Potential conflict with Alaska Railroad operations.

The Rovenna Frontage concept was based on the Proposed Action, but would include upgrading the existing local roads that connect Dowling Road to International Airport Road. This concept was not carried forward for the following reasons: • Intersection geometry problems created at International Airport Road by the two-way frontage road. • Small volume of vehicles per day using the frontage road, according to preliminary traffic modeling. This demand could be served with Arctic Boulevard or C Street. • Provision of local street connections instead of major arterial connections. Decisions about the local street network should be made at the municipal level, not the state level, making the concept unsuitable as a DOT&PF project. • Lack of distinction from the Proposed Action. This alternative would be an alignment variation.

For more details about these alternatives, please see Section 2.0 Alternatives of the EA.

2.3 Avoidance Alternatives Under the requirements of 23 USC Section 138, National Environmental Policy Act (NEPA) documents in which the proposed build alternatives involve impacts on Section 4(f) properties must include an analysis of alternatives that avoid Section 4(f) impacts through rerouting, design changes, or other methods. These avoidance alternatives must be selected if they are determined to be prudent and feasible methods of meeting the project’s purpose and need.

The Campbell Creek Greenbelt extends linearly through the project area and beyond to both the north and south. Due to the presence of this greenbelt running perpendicular to the proposed West Dowling Road Connection, it is not possible to identify a feasible and prudent build alternative that does not result in a use of a Section 4(f) resource, namely the Campbell Creek Greenbelt, while meeting the purpose and need. For this reason, the No Action Alternative is presented here as the only alternative that would avoid any impact on properties protected by Section 4(f).

West Dowling Road Connection Project – November 2007 November 2006 6 Section 4(f)/6(f) Evaluation 2.3.1 No Action Alternative The No Action Alternative would not use Foxtree Park, Lynwood Park or the Campbell Creek Trail but this alternative does not address the Project’s purpose and need. The No Action Alternative would continue the roadway system as it currently exists, with no physical changes to improve roadway connectivity and improve accessibility in the West Dowling Road Connection Project Area. Traffic congestion and poor levels of service would remain and continue to worsen as traffic volumes increase over time. The road network would remain discontinuous and dominated by minor arterials and collectors that feed traffic to the arterials. East-west barriers to through traffic would remain a problem and the poor accessibility of this area for emergency service providers and freight transport would continue. Trail users would continue to cross Dowling Road at an at-grade crossing. Therefore, the No Action Alternative is not a reasonable solution for avoiding properties protected by Section 4(f).

2.3.2 No 4(f) Property on the Existing Alignment Any avoidance alternative that improves Dowling Road on its existing alignment without taking Section 4(f) lands would have to be accomplished within the existing ROW. While this could be accomplished by reducing the width of the bridge so it is narrow enough to fit within the existing ROW such a design is not recommended as it would miss an opportunity to benefit the park and would have operational issues that make it less desirable than the proposed bridge. This design would result in a bridge that is approximately 83 feet wide and 100 feet long. With this width, the bridge would consist of 4 12-foot travel lanes, a 4-foot median, a 6-foot sidewalk and an 8-foot pathway making it inconsistent with the rest of Dowling Road. An inconsistent roadway tends to reduce driver comfort and has a relatively higher crash rate. The bridge would have a reduced capacity compared to the rest of the roadway. DOT&PF would be unable to increase the capacity of the roadway in the future without replacing the bridge.

On the bridge, the shoulders would be the minimum allowed by DOT&PF standards. There would be no separation between the shoulder and the sidewalk/pathway which would create a less pedestrian friendly environment as pedestrians would be much closer to the passing traffic.

Minimal shoulders do not provide adequate width for vehicles to stop without blocking traffic, bicycle use, bus stops, or the detouring of traffic during construction or maintenance activities. They reduce the amount of space drivers have for evasive maneuvers to avoid potential crashes. Minimal shoulders reduce the space available for snow storage. They also reduce the sight distance which tends to reduce safety. Drivers will have less warning of potential hazards such as trail users and wildlife crossing the road. Moose and other large wildlife would continue to cross the road at-grade because they are unable to cross under the bridge.

Left turns onto Austin Street would be prohibited as the median would not be wide enough to accommodate a turn pocket. Turning vehicles would block the traffic creating a safety concern.

To prevent fill from being placed in Lynwood Park, a wall would need to be built on the southwest quadrant. To minimize the amount of wall to be built, this bridge would only have 5-feet of clearance which is not enough for a grade-separated Campbell Creek Trail crossing. In other words, the continuous trail connection under the bridge would not be

West Dowling Road Connection Project – November 2007 November 2006 7 Section 4(f)/6(f) Evaluation made and the benefits to the park would be foregone. The construction cost of this bridge is estimated at $2.55 million. This is approximately $0.88 million less than the bridge included in the Proposed Action.

Increasing the bridge clearance without placing fill in Section 4(f) lands would require the use of retaining walls. This bridge would have most of the same operational issues as the previous bridge. In addition, providing connections between the Campbell Creek Trail and Dowling Road would not be made because the road would be approximately 13 feet above the trail. Fill would have to be placed in the parkland to obtain an acceptable grade for the connections between the Campbell Creek Greenbelt and Dowling Road. To avoid the park altogether, these connecting trails would also have to be foregone. This bridge would cost approximately $3.05 million to construct. This is approximately $0.38 million less than the bridge included in the Proposed Action.

Article 2 of the finding section of the net benefit programmatic evaluation says that it is not feasible and prudent to avoid Section 4(f) property by using engineering design or transportation system management techniques, such as minor location shifts, changes in engineering design standards, use of retaining walls and/or other structures and traffic diversions or other traffic management measures if implementing such measures would result in substantially increased transportation facility or structure cost or a missed opportunity to benefit a Section 4(f) property (FHWA 2005).

Modifying the bridge to stay within the existing ROW would forego an opportunity to benefit the Campbell Creek Greenbelt because it does not have adequate clearance for a grade-separated crossing. The use of retaining walls is the only way to allow a grade- separated crossing without using Section 4(f) property. However, this bridge does not include the trail connections included in the Proposed Action. If required to avoid Section 4(f) property, the cheaper of the two options is likely to be selected and the opportunity to benefit with park with a grade-separated trail crossing and connections to the roadside trails would be lost. This alternative is not considered prudent because it represents a missed opportunity to benefit a Section 4(f) property.

2.3.3 Alignment at a New Location The Campbell Creek Greenbelt is a linear feature oriented north-south. To avoid Section 4(f) properties, the road corridor would have to go north of Tudor Road or south of Dimond Boulevard. Both options are considered unreasonable because they would increase the traffic volume on existing roadways and one of the project’s purposes is to reduce traffic on adjacent arterials. This alignment would also not meet the project purpose and need to create a new continuous arterial connection between the Old Seward Highway and Minnesota Drive in the Dowling Road area.

Shifting the improved east/west roadway from Dowling Road to another alignment north or south between Tudor Road and Dimond Boulevard would only result in shifting the location of the Section 4(f) use. Therefore, an alignment at a new location is not a prudent or feasible alternative to avoiding Section 4(f) resources.

3. SECTION 4(f) PROPERTY The following parks and recreation areas are located within the Study Area and are protected under Section 4(f):

West Dowling Road Connection Project – November 2007 November 2006 8 Section 4(f)/6(f) Evaluation

• Campbell Creek Greenbelt (Foxtree Park, Lynwood Park, & Campbell Creek Trail)

The Campbell Creek Greenbelt was created in 1972. The Campbell Creek Greenbelt is a series of parks linked together by the Campbell Creek Trail. The Greenbelt parks that are adjacent to Dowling Road are Foxtree Park and Lynwood Park. The goal of the Greenbelt is to develop a continuous linear park that will connect the Campbell Airstrip to Campbell Lake. The Greenbelt has three major functions; prevent development in floodplains; provide an area for recreation activities; and help create an aesthetically pleasing community.

3.1 Detailed Map of the Property Figure 2 shows the location of Foxtree Park, Lynwood Park, and the Campbell Creek Trail.

3.2 Size of the Property Foxtree Park follows Campbell Creek and extends north from Dowling Road to the New Seward Highway. The park is 33.75 acres. Lynwood Park follows Campbell Creek from Dowling Road south to the Alaska Railroad tracks. The park is 46.83 acres. The Campbell Creek Trail starts just east of the Anchorage Police Department Headquarters building on Tudor Road and extends south-west to the Dimond Boulevard and Victor Road intersection. The section of trail that would cross the New Seward Highway has never been constructed although it is planned. The existing trail is approximately 7.3 miles long.

3.3 Ownership and Type of Property The Campbell Creek Greenbelt is owned by the Municipality of Anchorage. It is managed by the MOA’s Parks and Recreation Department.

3.4 Function of Property and Available Activities Foxtree and Lynwood Parks are classified as Natural Resource Use areas by the MOA. The Anchorage Bowl Park, Natural Resource, and Recreation Facility Plan describes Natural Resource Use areas as those that are set aside for preservation of significant natural resources, remnant landscapes, open space, and visual aesthetics or buffering (MOA 2006).

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Trail Local Street Lake Stream Arterial Park Railroad Freeway Study Area Figure 2. Existing Recreation Resources Legend

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Both parks are owned by the MOA. The MOA considered these parks to be natural resources areas. According to the March 2006 Draft Anchorage Bowl Park, Natural Resource, and Recreation Facilities Plan, “Natural Resource Use areas are set aside for preservation of significant natural resources, remnant landscapes, open space, and visual aesthetics or buffering. These lands consist of individual sites exhibiting natural resources; lands that are unsuitable for development but offer natural resource potential such as steep slopes, drainage ways and ravines, surface water management areas and utility easements; and non-motorized links between residential areas, parks and schools, and close-to-home recreation. They enhance economic development potential, contribute to a healthy community, and provide wildlife movement corridors and habitat. This classification consists of trails, greenbelts, and linear parks and includes a mix of hard- and soft surface trails. Maintenance of these areas is dependent on the type of trail and design standard” (MOA 2006).

Although Natural Resource Use areas are resource based rather than user based, they can provide some passive recreational opportunities including nature viewing and study, greenways for trail linkage and connections, trail head and limited parking areas (MOA 2006).

The Campbell Creek Trail is a multi-use trail and is used by walkers, joggers, cross- country skiers, bicycle, etc. It is not used by motorized vehicles or sled dog mushers except when reserved for special events. The Campbell Creek Trail is a part of the greenbelt trail system that is considered to provide “important pedestrian linkages to schools, recreation areas, and areas of commerce” and the trails “are used significantly as pleasurable walking routes” (MOA 1997).

3.5 Description and Location of all Existing and Planned Facilities of the Property Other than the Campbell Creek Trail, there are no existing facilities within Foxtree and Lynwood Parks. There are no planned facilities for Foxtree Park.

In Lynwood Park, the Anchorage Bowl Park, Natural Resource, and Recreation Facility Plan calls for the development of new park or to acquire land in the adjacent area to serve the local neighborhood along Dowling Road (MOA 2006).

The Plan also shows Lynwood Park as having a 10-acre reserve. Reserves are “those areas that retain most of their natural vegetation, perform a variety of natural functions found throughout the Anchorage Bowl, but that have features that make development for public use possible with limited cost and minimal disturbance to the surrounding ecosystem” (MOA 2006).

The Campbell Creek Trail runs through the Campbell Creek Greenbelt connecting other parks to each other. Trail connections are discussed in section 3.6.

The 1997 Areawide Trails Plan indicates the Campbell Creek Trail at Dowling Road is intended to be a grade-separated crossing. The existing crossing is an at-grade mid-block crossing without any traffic controls. Most of the crossings along the Campbell Creek Trail are grade-separated crossings. In fact, the Dowling Road crossing is one of only two locations along the Campbell Creek Greenbelt that does not have a grade-separated

West Dowling Road Connection Project – November 2007 October 2006 11 Section 4(f)/6(f) Evaluation

crossing. The existing Dowling Road bridge is too low to allow the trail to pass under the road.

3.6 Access and Use of the Property There are many trailhead located along the Campbell Creek Greenbelt. The trailhead for Foxtree Park is located at the Old Seward Highway and 54th Avenue. The trailhead for Lynwood Park is located near the intersection of Lynwood Drive and Fischer Ave. Both parks can also be accessed off the Campbell Creek Trail. There are also several paved pedestrian connecting the Trail to local streets that provide pedestrian access.

The MOA does not maintain information on the visitor/user frequency of recreation resources. Consequently, there is no usage information for Foxtree Park, Lynwood Park or the Campbell Creek Trail.

3.7 Relationship of the Property to Other Similarly Used Lands in Vicinity There are no other existing parks or recreational trails in the project area. City-wide, there is approximately 10,829 acres of parkland of which approximately 8,911 acres are designated as Natural Resource Use areas. There are other recreational trails in Anchorage including the Chester Creek Trail and the Tony Knowles Coastal Trail.

3.8 Issues Affecting the Ownership or Use of the Property The Campbell Creek Greenbelt is subject to Section 6(f) of the Land and Water Conservation Fund Act (LWCF).

3.9 Unusual Characteristics of the Property The Campbell Creek Greenbelt primarily consists of floodplain which restricts the types of recreational facilities that could be constructed on the property. It also provides a buffer for Campbell Creek. The Campbell Creek Greenbelt also acts as a fish and wildlife corridor.

3.10 Section 6(f) of the Land and Water Conservation Fund Act Applicability State and local governments may obtain grants through the LWCF to acquire or improve parks and recreation areas. Section 6(f) of the Act prohibits the conversion of property acquired or developed with these grants to non-recreational purposes without the approval of the National Park Service (NPS). Section 6(f) directs NPS to ensure the replacement lands are of equal value, location, and usefulness as conditions to such conversions. Where 6(f) lands are proposed for roadway projects, replacement lands will be required.

Based on information obtained from Alaska Department of Natural Resources (ADNR), the Campbell Creek Greenbelt is a Section 6(f) property. The Proposed Action requires the acquisition of a portion of the Greenbelt. No recreational structures or equipment are contained in the affected areas. The details of the specific impacts to are discussed in Section 3.0. DOT&PF will provide appropriate mitigation, including replacement lands, for Section 6(f) impacts. The location of the replacement lands has been identified. Mitigation is discussed in Section 5.23.

West Dowling Road Connection Project – November 2007 October 2006 12 Section 4(f)/6(f) Evaluation

4. IMPACTS A Section 4(f) use can be the result of a direct (i.e. actual) use or an constructive (i.e. indirect) use. A direct use impact occurs when a property protected by Section 4(f) (a) is permanently incorporated into a transportation facility or (b) is temporarily occupied, causing minor effects that are subsequently restored. An constructive indirect use impact occurs when a project does not incorporate (or remove) a property protected by Section 4(f) but is so close to the property that the activities, features, or attributes of the property are substantially impaired. Five criteria are used to evaluate this type of impact: • Noise • Aesthetic characteristics of the property • Property Access • Vibration • Ecological intrusion, such as substantially diminished wildlife habitat.

The Proposed Action would have temporary and permanent direct use impacts to Lynwood Park and Foxtree Park. Campbell Creek Trail would have temporary direct use impacts. No constructive indirect use impacts are anticipated.

Approximately 0.08 0.10 acres of Lynwood Park will be acquired. The needed land is located on the park’s northern boundary. Approximately 0.13 acres of Foxtree Park will be acquired. The land is located on the park’s southern edge. The amount being acquired accounts for less than one percent of each park (see Table 1). A portion of the parcel (approximately 0.60 ac) adjacent to Foxtree Park is being acquired for the project. Approximately 0.49 acres of the acquired parcel will be added to Foxtree Parks and used to create a trailhead (see Section 5.23 for more details on the trailhead). The remaining land (0.11 acres) will be used to create an MOA street to provide access to the remaining apartment building and the trailhead. Figure 3 shows the impacts to the Section 4(f) properties.

Table 1. Park Size and Acquisition Amounts Total Size Area being taken/added Resulting Size % Size Lynwood Park 46.83 ac -0.08 ac 0.17% 46.75 Foxtree Park 33.75 ac -0.13 ac 0.33% 33.62 Trailhead +0.49 ac 100% 0.49 Total 80.58 ac +0.28 ac 80.79 Source: MOA and HDR

The impacts on Lynwood Park would be limited to the placement of fill for the roadway and would result in a direct use. The placement of fill would also occur in Foxtree Park. The fill being placed in parkland on the east side of Campbell Creek is likely to occur anyways because a grade-separated crossing increases the distance between the Trail and Dowling Road. Fill would be necessary to create an acceptable grade on the trail connections between the Campbell Creek Trail and the Dowling Road sidewalk/pathway system.

West Dowling Road Connection Project – November 2007 October 2006 13 Section 4(f)/6(f) Evaluation

West Dowling Road Connection Project

Campbell Creek Greenbelt Foxtree Park

Road Impact 0.13ac

Road Impact Road Impact 0.01ac 0.07ac

Campbell Creek Greenbelt Lynwood Park I

015075

Feet Source: Municipality Source: of Anchorage, | ADOT File: Z:\07072 DOT&PF\240 Dowling Ext\Work Road Products\GIS\MXD

Road Impact Area of Construction Project Centerline Parcel Boundary Park Bridge Figure 3. Impacts to Re-Aligned Campbell Creek Trail Section 4(f) Resources Legend

West Dowling Road Connection Project – November 2007 October 2006 14 Section 4(f)/6(f) Evaluation

West Dowling Road Connection Project

Campbell Creek Greenbelt Foxtree Park

Road Impact 0.11ac

Road Impact Road Impact 0.01ac 0.07ac

Campbell Creek Greenbelt Lynwood Park I

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Road Impact Area of Construction Project Centerline Parcel Boundary Park Bridge Figure 3. Impacts to Re-Aligned Campbell Creek Trail Section 4(f) Resources Legend

West Dowling Road Connection Project – November 2007 October 2006 15 Section 4(f)/6(f) Evaluation

The roadway and bridge will take a sliver approximately 17 feet wide of Foxtree Park along its edge. It is likely that the vegetation in that area has been disturbed by previous projects and is no longer in its natural state. The proximity of the existing road and previous disturbances would make the parkland underneath the bridge unsuitable as a natural resource area. Previously disturbed vegetation does not diminish this area’s suitability for the proposed trail use.

Construction activities are expected to require temporary direct uses of Lynwood Park, Foxtree Park and the Campbell Creek Trail. Due to safety concerns, recreational use would not be possible at times when heavy equipment is present.

No constructive indirect use of the remaining parkland and realigned trail would occur. Park/trail users are not likely to be deterred from using the Campbell Creek Trail, Lynwood Park or Foxtree Park as a result of the roadway improvements. In fact, by being at creek side, with a continuous trail, trail users will experience a safer and more scenic experience than they have now with the at-grade crossing.

Aesthetically, the existing parks are separated by Dowling Road. Technically, the parks would remain separated after completion of the Dowling Road improvements (because the DOT&PF would own the ROW under the bridge). However, trail users would remain alongside Campbell Creek and would perceive the Greenbelt as being continuous.

There would not be a substantial increase in ecological intrusion, as the majority of the Greenbelt would remain intact. In fact, the grade-separated trail crossing would allow moose and other wildlife to cross under Dowling Road providing an ecological improvement. The clearance of the existing bridge prohibits larger animals such as moose from crossing underneath the road.

Access to the Campbell Creek Greenbelt would improve as a result of trailhead that is included in the project (see Section 5.23 for more details on the trailhead).

Noise and vibration levels are not forecast to change substantially as traffic flows in this area are heavy today and congestion in the area would likely be reduced by the roadway improvements. The project’s Traffic Noise Assessment indicates that noise levels in this area are expected to increase by less than 10dBA (HDR 2006). Trail users will be able to cross under the road and should experience less noise than they do now at the at-grade crossing.

5. NET BENEFIT ANALYSIS Section 2.0 demonstrated that no feasible and prudent alternative exists to avoid all of the recreation resources protected by Section 4(f) and still complete the West Dowling Road Connection Project. This section outlines the measures to minimize harm that have been incorporated into the Proposed Action. Mitigation elements that will result in a net benefit for the affected Section 4(f) properties are also discussed.

5.1 Minimization DOT&PF is committed to minimizing impacts by minimizing the footprint of the project to the extent practicable. The impacts reported in the West Dowling Road Connection Project EA reflect the best estimates available based on the current engineering. The

West Dowling Road Connection Project – November 2007 October 2006 16 Section 4(f)/6(f) Evaluation

footprint of Dowling Road through the Campbell Creek Greenbelt would be kept to the minimum necessary to meet DOT&PF design standards. As the design process continues, it may be possible to further minimize the footprint of the project on the park resources.

5.2 Mitigation, Enhancement, and Beneficial Measures The improvements being made will provide greater recreation utility and usefulness than the parkland that will be used by the proposed project.

To enhance the Campbell Creek Greenbelt, DOT&PF is including the following measures in the project:

Grade Separated Trail Crossing The grade separated crossing is included in the Proposed Action as the result of a request from MOA Parks and Recreation. MOA requested that the clearance under the Dowling Road bridge be increased enough to allow a grade-separated crossing. They also requested trail connections between the Campbell Creek Trail and the roadside trails (Korosei 2005).

DOT&PF will increase the clearance and width of the Campbell Creek bridge to accommodate a grade-separated trail crossing. A grade-separated crossing will provide a safer route for trail users. It will also be more scenic as trail users will be beside Campbell Creek and below the traffic. The grade-separated crossing will also improve wildlife safety in the area as wildlife will be able to cross under the road. The Department of Fish & Game believes this crossing is the location of multiple moose- vehicle accidents (Anderson 2003). The re-aligned trail will be connected to Dowling Road through two access ramps.

Construction of trail connections and raising the elevation of the Campbell Creek bridge would result in additional impacts on Foxtree Park because the ramps connecting the trails would require additional fill material and higher embankments would be required for the bridge itself. Fill material from the embankments and for trail access would also cross into the Lynwood Park property. These impacts would be minimized by keeping the footprint of the roadway to the narrowest possible. Mitigation for this impact could include the planting of vegetation similar to that found in the park along the right-of- way and on the embankments to minimize the amount of lost parkland.

Bicycle/Pedestrian Network Improvements The Proposed Action includes improvements to the bicycle/pedestrian network. It includes a six-foot sidewalk on the north side and a 12-foot multi-use pathway on the south side of Dowling Road. The project will also provide trail connections from Dowling Road to the Campbell Creek Trail.

Section 6(f) Replacement Property (Trailhead) To comply with Section 6(f) regulations, Campbell Creek Greenbelt lands that are converted from recreational to transportation uses must be replaced with lands of equal value. The replacement land will be adjacent to Foxtree Park on the east side. The size of the replacement land is approximately 0.49 acres which is greater than the amount being taken. A trailhead will be built on this site and a trail connection to the Campbell Creek Greenbelt will be built (see Figure 4). Access to the trailhead will be from a new street created to the east of the replacement land. The new street is required to provide access to the apartment building located just north of this property and to the trailhead.

West Dowling Road Connection Project – November 2007 October 2006 17 Section 4(f)/6(f) Evaluation

West Dowling Road Connection Project

Proposed 6(f) Mitigation 0.49ac

Proposed Street 0.11ac

Campbell Creek Greenbelt Foxtree Park

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Road Impact Area of Construction Project Centerline Proposed Street Figure 4. Proposed Proposed Mitigation Parcel Boundary Bridge Re-Aligned Campbell Creek Trail Park Trailhead 6(f) Mitigation Legend

West Dowling Road Connection Project – November 2007 October 2006 18 Section 4(f)/6(f) Evaluation

Analysis has shown that the trailhead property has a greater value than the parkland being acquired. The land for the trailhead has as estimated value of $78,700 while the parkland being acquired has an estimated value of $39,000.

DOT&PF will continue to work with the park administrators to determine the final configuration of the trailhead.

6. COORDINATION

6.1 Coordination with MOA The MOA administers Foxtree Park, Lynwood Park and the Campbell Creek Trail. Early in the project, it was known that the replacement of the Campbell Creek Bridge was a concern for the MOA. Project-specific coordination began with MOA in August 2005 and continues today. Coordination has consisted of meetings, letters, telephone conversations and email with MOA Parks and Recreation staff. Documentation of coordination activities are located in Appendix A

MOA Parks and Recreation believes that the grade-separated crossing and the trail connections will result in a benefit to the Campbell Creek Greenbelt (Korosei 2005).

6.2 Coordination with ADNR Coordination with ADNR, the local LWCF grant administrator began during the scoping of the project and continues today. Coordination has consisted of meetings, letters, telephone conversations and emails. ADNR-LWCF also supports the project and believes that the proposed mitigation is sufficient for the property being acquired (HDR 2006B). This coordination is expected to continue until the completion of the Proposed Action.

6.3 Coordination with the Public Coordination with the public is an ongoing activity on this project. Public involvement activities have occurred for the past several years and have included public meetings, a website and newsletters. Throughout the project, the public has expressed their desire to see a grade-separated crossing at Dowling Road. The public was also involved in the development of the Areawide Trails Plan which calls for a grade-separated crossing. After the EA and Section 4(f) Evaluation are released for public review, another public meeting will be held.

7. CONCLUSION

Based on the above considerations, there is no feasible and prudent alterative to using property from the Campbell Creek Greenbelt that does not result in a missed opportunity to benefit the Greenbelt. The Proposed Action will result in a beneficial use of the Section 4(f) property.

This programmatic evaluation approval applies only after the Administration has:

West Dowling Road Connection Project – November 2007 October 2006 19 Section 4(f)/6(f) Evaluation

1. Determined that the project meets the applicability criteria set forth in Applicability section; 2. Determined that all of the alternatives set forth in the Findings section have been fully evaluated; 3. Determined that the findings in the programmatic evaluation (which conclude that the alternative recommended is the only feasible and prudent alternative) result in a clear net benefit to the Section 4(f) property; 4. Determined that the project complies with the Mitigation and Measures to Minimize Harm section of this document; 5. Determined that the coordination and public involvement efforts required by this programmatic evaluation have been successfully completed and necessary written agreements have been obtained; and 6. Documented the information that clearly identifies the basis for the above determinations and assurances.

By signature of the revised EA, the Federal Highway Administration has concluded that the project and the Section 4(f) evaluation meets the criteria described above.

West Dowling Road Connection Project – November 2007 October 2006 20 Section 4(f)/6(f) Evaluation

8. REFERENCES

Anderson, Cindy. DNR. Letter 2003.

Federal Highways Administration (FHWA). 2005. Section 4(f) Evaluation and Approval for Transportation Projects That Have a Net Benefit to a Section 4(f) Property Available at http://www.environment.fhwa.dot.gov/projdev/4fnetbenefits.asp Accessed on August 18, 2006.

HDR. Roadway Traffic Noise Assessment. Prepared for Alaska Department of Transportation and Public Facilities. 2006.

HDR. Meeting Minutes. 2006B.

Korosei, Tom. MOA Parks and Recreation. Letter to Miriam McCulloch. 2006

MOA. Draft Anchorage Bowl Park, Natural Resource, and Recreation Facility Plan: March 2006 Assembly Draft. Available at http://www.muni.org/Planning/ParkPlanDraft.cfm Accessed on July 7, 2006.

MOA. Areawide Trails Plan. Department of Community Planning and Development. April 1997

West Dowling Road Connection Project – November 2007 October 2006 21 Section 4(f)/6(f) Evaluation

APPENDIX A Copies and summary of all formal coordination comments received on the Programmatic Section 4(f)/6(f) Evaluation

West Dowling Road Connection Project – November 2007 October 2006 Section 4(f)/6(f) Evaluation

August 28, 2003

Carolyn Bloom Municipality of Anchorage, Parks & Recreation P.O. Box 196650 Anchorage, AK 99519-6650

Re: West Dowling Road Connection Project, Project Number: 55012/STP-0532(5)

Request for Agency Scoping Comments

Dear Ms. Bloom:

The Alaska Department of Transportation and Public Facilities (ADOT&PF) in cooperation with the Federal Highway Administration (FHWA) is soliciting comments and information regarding a project to upgrade/extend Dowling Road from the Old Seward Highway to Minnesota Drive in Anchorage, Alaska as shown on the attached study area map.

PROJECT PURPOSE AND NEED The identified objectives of this project include: • Provide additional east-west connectivity for north-south arterials. • Reduce vehicle miles traveled, congestion and poor levels of service (LOS) on surrounding arterials. • Distribute north-south trips to and from residential and employment areas. • Improve accessibility to neighborhoods, industrial reserves, and other land uses in the project area. • Provide improved connectivity and mobility for trips traveling through the project area. • Improve convenience, mobility, and efficiency for freight and emergency service providers.

PROJECT DESCRIPTION The project is to upgrade the existing section of Dowling Road between the Old Seward Highway and its current terminus at B Street and connect Dowling Road to Minnesota Drive. The resulting facility is expected to be a 4 or 5 lane major arterial.

The project will include pedestrian and bicycle facilities, drainage improvements, a new bridge over Campbell Creek and an Alaska Railroad crossing. Minimal relocation of the Chugach Electric facilities is expected. Right-of-way impacts are expected to involve privately owned and governmental land. August 28, 2003 Page 2

CONCEPTS BEING CONSIDERED Four concepts are being considered which are illustrated on the attached concepts map. The first concept, the S Curve Concept, uses an S curve to connect the intersections of Dowling Road and C Street to Minnesota Drive and Raspberry Road.

The second concept is called the Frontage Road Concept. It involves extending Dowling Road to a T intersection with a new frontage road that parallels Minnesota Drive. This frontage road, a 4-lane two- way facility, will connect to the existing interchanges at Raspberry Road and International Airport Road.

The Raspberry Dowling Concept involves extending Dowling Road to Arctic Boulevard and Raspberry Road from Minnesota Drive to C Street.

The fourth concept, the Rovenna Concept, extends Dowling Road to Arctic Boulevard and then uses the existing Rovenna Street right-of-way (ROW) to connect the intersection of Dowling Road and Arctic Boulevard to the Minnesota Drive and Raspberry Road interchange.

No decisions have been made regarding any of these alternative concepts. The project is in its initial study phases and these concepts are in general response to the necessary connections and very preliminary input received from the public to date.

PRELIMINARY RESEARCH RESULTS Due to the preliminary phase of the project, environmental impacts have yet to be identified. However, potential issues have been identified based upon the collection of existing data and previous comments by the public and agencies.

The preliminary research results of State and Federal documents is contained in the Appendix A attachment.

To ensure that all factors are considered in the development of the environmental document, please provide your written comments, recommendations and requested information to our office no later than September 30, 2003.

If you have any questions regarding the project, please call Dan Simpson, HDR Alaska, 907-644-2000 or Miriam Tanaka, ADOT&PF, 907-269-0546. Thank you for your assistance.

Sincerely,

Jerry O. Ruehle

Enclosures: Project Location Map Concept Map Appendix A

West Dowling Road Connection Project Section 4(f)/6(f) Meeting HDR Alaska, Inc. Tuesday, September 12, 2006 - 12 noon to 1:30 pm Minutes Attendees

Miriam McCulloch (DOT&PF), Edrie Vinson (FHWA), Dan Simpson (HDR), Lance DeBernardi (HDR), John McPherson (HDR), Laurie Cummings (HDR), Glen Yankus (NPS), Kristy Gray (AK State Parks), Joy Bryan-Dolsby (AK State Parks), Tom Korosei (MOA Parks & Recreation)

Introductions

Dan Simpson provided an overview of the project.

Miriam and Tom confirmed that the project is considered a beneficial use.

Tom and Joy confirmed that these properties are subject to Section 6(f) regulations.

John explained that the park impacts are due to the trails. The bridge has to be higher to accommodate the Campbell Creek trail. The roadside pathway and sidewalk also increases the width of the bridge. These roadside amenities will create a continuous trail connecting Far North Bicentennial Park to Kincaid Park.

Tom expressed concern about the aesthetic impact as well as the functional impact. He would like to see some landscaping and to integrate the trail with the greenbelt.

Dan described the proposed 6(f) mitigation – a trailhead adjacent to Foxtree Park

There was some discussion about what land would have a conversion of use.

Joy mentioned that the replacement 6(f) land would have to be identified as a 6(f) area.

Edrie provided an overview of Section 4(f) regulations.

Edrie mentioned that the work in the park would be done under a temporary construction easement. DOT&PF will retain the area under the bridge to prevent the need to get a temporary construction easement when DOT&PF needs to do bridge maintenance.

Dan discussed the $20 million of State funds available to the project. While this is not enough for right-of-way acquisition, the funds may be used to acquire right-of- way between the Old Seward Highway and C Street.

Miriam remarked that the Old Seward to C Street section is likely to be constructed first.

Tom, Joy and Glen commented that the proposal appears to be acceptable to them.

Edrie stated that preliminary EA should be available sometime in the next month. A programmatic 4(f) evaluation will be included in the EA.

Tom said he needs to show the project to the Parks & Recreation Commission. Their next meeting is October 12th. The project team will develop a package for him to give the Commission and someone from the team will attend the meeting.

Tom mentioned that he’d like more details regarding the enhancements.

It was agreed that there will be design coordination meetings to decide the details.

Action Items • Package for Tom to show the Parks & Recreation Commission by September 29th.

Parks & Recreation Commission Briefing October 12, 2006 ProjectProject HistoryHistory

ƒ BeenBeen inin LTRPLTRP forfor overover 2020 yearsyears ƒ InIn 1994,1994, ADOT&PFADOT&PF beganbegan projectproject developmentdevelopment onon aa multimulti--lanelane improvementimprovement toto DowlingDowling RoadRoad betweenbetween LakeLake OtisOtis ParkwayParkway andand MinnesotaMinnesota DriveDrive ƒ AfterAfter scopingscoping waswas completed,completed, thethe projectproject waswas divideddivided intointo 22 phases:phases: thethe recentlyrecently completedcompleted DowlingDowling RoadRoad (between(between OldOld SewardSeward andand LakeLake Otis)Otis) andand WestWest DowlingDowling (between(between OldOld SewardSeward andand Minnesota)Minnesota) ƒ InIn 2002,2002, workwork beganbegan onon thethe WestWest DowlingDowling RoadRoad ConnectionConnection Project.Project. ƒ PublicPublic andand AgencyAgency scopingscoping conductedconducted inin 20032003 ProjectProject PurposePurpose

ƒ The DOT&PF has identified a need to construct a continuous east-west arterial connection between Minnesota Drive and the Old Seward Highway between International Airport Road and Dimond Boulevard. Among the purposes that the DOT&PF hopes to achieve with the project are: „ Provide connectivity for east-west trips to north-south collectors and arterial roads in the project area to: „ Improve accessibility of trips to and from residential areas to and from employment areas. „ Provide improved connectivity and mobility for southwest to northeast and southeast to northwest cross-town trips. „ Create more direct routes of accessaccess for emergency service providers. „ Reduce congestion on parallel arterials and not exacerbate levels-of-service on adjacent arterials. „ Enhance access to Taku/Campbell and Campbell Park neighborhoods. „ Improve accessibility to industrial land uses and industrial reserves to and from the highway network. „ Eliminate barriers (Campbell Creek and ARRC Mainline) to traversing the project area. ProposedProposed ActionAction RecreationRecreation ResourcesResources ParkPark ImpactsImpacts EnhancementEnhancement ForFor MoreMore InformationInformation

ƒ Log onto the project website www.dowlingroad.com

ƒ Miriam McCulloch, ADOT & PF, Project Manager [email protected].

ƒ Dan Simpson, HDR Alaska, Inc. Project Team Manager (907) 644-2000

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