Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

This chapter describes the affected environment  Wildlife (Section 3.18) in the proposed project area and the anticipated environmental consequences for the No Build  Noise (Section 3.19) Alternative and Build alternatives—Alternatives  Energy (Section 3.20) A, B, C, D, E, and D Refined (the preferred alternative). This section also includes ways to  Air Quality (Section 3.21) mitigate for potential impacts to the social and  Hazardous Materials (Section 3.22) natural environments. (Appendix G provides a summary of proposed and committed mitigation For more information about each of these and environmental measures.) resources and the impacts to them, please see the technical reports, which are listed in The impacts are analyzed for the following social Appendix D of this Final Environmental Impact and natural environmental resource topics: Statement (FEIS). These technical reports are  Transportation (Section 3.1) available upon request. This chapter summarizes these technical reports, which are incorporated  Bicyclists and Pedestrians (Section 3.2) by reference into this chapter. In addition, this  Right-of-way and Relocation (Section 3.3) chapter includes information about the relationship of short-term uses of the  Utilities (Section 3.4) environment and long-term productivity (Section 3.23), the irreversible and irretrievable  Land Use (Section 3.5) commitment of resources (Section 3.24), and  Economic (Section 3.6) cumulative impacts (Section 3.25).

 Social Elements (Section 3.7) 3.1 Transportation  Environmental Justice (Section 3.8) The transportation analysis considers roadways, transit, navigation of the Willamette River, and  Parks and Recreation (Section 3.9) railroad/trolley tracks in the project area.  Archaeological and Historic Resources Because of the large commitment to bicyclists (Section 3.10) and pedestrians made within the design of the project, bicyclist and pedestrian facilities are  Visual Resources (Section 3.11) covered extensively in Section 3.2, Bicyclists and Pedestrians. They are mentioned briefly within  Geology (Section 3.12) this section only with respect to operations of  Water Quality (Section 3.13) interchange designs.

 Hydraulics (Section 3.14) 3.1.1 Affected Environment  Aquatic Resources (Section 3.15) The transportation study area (Figure 3.1-1) includes the Sellwood Bridge; SE Tacoma Street  Vegetation (Section 3.16) between the Sellwood Bridge and Oregon 99E (OR 99E; SE McLoughlin Boulevard); OR 99E  Wetlands (Section 3.17) between SE Nehalem Street and SE Umatilla

Sellwood Bridge Project F i na l Environmental Impact Statement 3-1 Transportation Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

Street; and Oregon 43 (OR 43) between Study Area Roadways SW Nevada Street and SW Riverdale Road Sellwood Bridge (south of the Sellwood Bridge). A portion of The current configuration of the Sellwood Bridge SW Taylors Ferry Road is also in the study area is a cross-section of 31 feet in width, including (approximately a 0.3-mile section of the roadway two 12-foot-wide travel lanes and one 4-foot- just south of the intersection with OR 43 to 3-inch-wide sidewalk on the north side for approximately the access point to River View bicyclist and pedestrian travel. The remaining Cemetery). It also encompasses key intersecting cross-section is devoted to bridge railings. roadways, including: The Sellwood Bridge and SE Tacoma Street are • OR 43 at SW Nevada Street designated as “Major Transit Streets” in the City of Portland’s Transportation System Plan (2004, • OR 43 at SW Taylors Ferry Road–SW Miles updated in 2007). However, transit service has Street been discontinued across the bridge because of • OR 43 at River View Cemetery access road structural deficiencies. Before the weight restriction was imposed in June 2004, bus usage • SE Tacoma Street at SE 6th Avenue across the bridge was substantial. Currently, no • SE Tacoma Street at SE 13th Avenue vehicles weighing more than 10 tons, including trucks, are permitted to use the Sellwood Bridge. • SE Tacoma Street at SE 17th Avenue Portland’s Freight Master Plan (2006) designates Each of these intersections with these roadways, the bridge as a Truck Access Street in except SE Tacoma Street/SE 6th Avenue, is recognition of its service as an access and currently signalized. circulation route for the delivery of goods and services to neighborhood-serving commercial and employment land uses. This includes truck trips between Sellwood, Westmoreland, and

FIGURE 3.1-1 Study Area Roadways

3-2 Sellwood Bridge Project Final Environmental Impact Statement Transportation C ha p t e r 3 . Existing Environment, Anticipated Impacts, and Mitigation

geometry of the west-side interchange, large trucks must avoid the bridge, thereby substantially impeding freight movement between these areas.

The bridge has no shoulders to provide access for emergency vehicles, accommodate vehicular breakdowns, or facilitate maintenance. In addition, the bridge’s vertical curves limit motorist sight distance. The interchange of the bridge and OR 43 (west-side interchange) also has many substandard features, including horizontal and vertical curves that limit motorist sight distance and reduce the ability of trucks to safely turn. Several ramp connections also provide insufficient vertical clearances, narrow or nonexistent shoulders, and excessive grades.

OR 43 OR 43 (also referred to as SW Macadam Avenue in the city of Portland) runs north-south between Portland and Oregon City, traveling through Lake Oswego and West Linn. The facility has two Vehicles weighing more than 10 tons, including vehicle travel lanes in each direction. Figure 3.1-2 trucks and buses, are prohibited from using the shows the existing interchange of OR 43 with the Sellwood Bridge. Sellwood Bridge. Vehicles traveling northbound on OR 43 toward downtown Portland must use a Milwaukie on the east side of the Willamette one-lane bypass ramp. The southbound-loop River and the southwest Portland area on the ramp from the Sellwood Bridge to OR 43 is a west side (via OR 43). However, because of single-lane one-way ramp that enables westbound current load restrictions and the physical

Vertical Curve The vertical curve is the curvature of a road with respect to the vertical plane (flat vs. mountainous). Shorter-crest curves can create sight problems if drivers cannot see a sufficient distance ahead of their vehicles

Horizontal Curve The horizontal curve is the curvature of a road with respect to the horizontal plane (straight vs. curved). Substandard horizontal curves affect safe vehicle operating speeds, sight distance, and capacity.

Sellwood Bridge Project F i na l Environmental Impact Statement 3-3 Transportation Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

bridge vehicles to enter southbound OR 43. The Two traffic signals are located on SE Tacoma ramp splits off to the right from OR 43, loops Street—at SE 13th Avenue and SE 17th Avenue. under the Sellwood Bridge structure immediately adjacent to the northbound bypass ramp, and Other Study Area Roadways Other study area roadways considered in the reconnects to OR 43’s mainline. A traffic signal at transportation analysis include SE Spokane Street, this intersection facilitates vehicle movements. SE Tenino Street, and SE Umatilla Street (which This ramp also provides access to northbound run parallel to SE Tacoma Street) and SE 13th OR 43 along the mainline segment, which merges Avenue and SE 17th Avenue/SE Milwaukie with the northbound bypass. Avenue (which cross SE Tacoma Street). In SE Tacoma Street addition, OR 43’s intersection with SW Taylors SE Tacoma Street is one of Sellwood’s Ferry Road is included. Community Main Streets. It serves motor vehicle traffic, public transportation, bicyclists, and Roadway Performance pedestrians. Between the Sellwood Bridge and Traffic Levels SE 17th Avenue, SE Tacoma Street generally Currently, about 30,000 vehicles cross the provides one through lane in each direction and a Sellwood Bridge each weekday. The majority center left-turn lane/two-way left-turn lane. (52 percent) of these trips are between On-street parking is allowed along portions of Clackamas County and Portland (Table 3.1-1). the south side of SE Tacoma Street in this segment. Between SE 17th Avenue and OR 99E, TABLE 3.1-1 SE Tacoma Street has one travel lane, a bike lane, Travel Markets of Existing Sellwood Bridge Users and an on-street parking lane in each direction. Vehicle Trips Between (percent)

FIGURE 3.1-2 East side of Portland and west side 17 Existing OR 43/Sellwood Bridge Interchange of Portland Portland and Washington County 11 Clackamas County and 13 Washington County Clackamas County and Portland 52 East side of Clackamas County and 7 west side of Clackamas County Source: Portland Bureau of Transportation (PBOT).

OR 43 serves over 34,000 vehicles each weekday north of the Sellwood Bridge and 26,000 vehicles south of the bridge. SE Tacoma Street serves about 28,000 vehicles between the bridge and SE 13th Avenue, 20,000 vehicles between SE 13th Avenue and SE 17th Avenue, and 14,000 vehicles between SE 17th Avenue and OR 99E.

During the weekday-morning peak hour, the westbound travel lane on the Sellwood Bridge serves about 1,700 vehicles per hour, while the

3-4 Sellwood Bridge Project F i n a l Environmental Impact Statement Transportation C ha p t e r 3 . Existing Environment, Anticipated Impacts, and Mitigation eastbound lane serves almost 900 vehicles per are passenger cars; other types of two-axle, four- hour. However, the hourly westbound travel tire, single-unit vehicles; and motorcycles. demand is actually higher than 1,700 vehicles per hour; it is limited to this amount because of the Transit Service The vehicle weight limit now prohibits bus capacity constraint associated with the service across the bridge because a loaded bus interchange at OR 43 and the interaction with weighs about 19 tons. Prior to the restrictions in northbound OR 43 traffic. This condition results 2004, two bus routes traveled across the bridge. in westbound vehicle queuing across the While no buses currently travel along the Sellwood Bridge. Sellwood Bridge, four bus routes traverse the study area. Two routes travel along OR 43, but The peak hour refers to the highest hour neither route has a stop in the vicinity of the of traffic during a certain time period, such as the morning and afternoon. The Sellwood Bridge. The 35–Macadam route typical morning and afternoon connects Oregon City with Portland City Center commuter hours on weekdays are and the 36–South Shore serves Tualatin and considered the peak hour of traffic and Portland City Center. A high-capacity transit are the time periods typically evaluated Peak Hour for transportation operations. The study is under way for the OR 43 corridor to afternoon peak generally has more determine whether bus rapid transit (BRT) or vehicle activity than the morning peak. streetcar service would provide the best service for this corridor. In the afternoon, the eastbound travel lane on the Level of Service and Congestion Sellwood Bridge serves about 1,500 vehicles per Currently, all the signalized study intersections hour and the westbound lane serves 1,100 operate at level of service (LOS) D or better vehicles per hour. The eastbound travel demand during the weekday-morning peak hour. The is higher than 1,500 vehicles per hour, but the SE Tacoma Street/SE 13th Avenue intersection, actual travel demand is constrained by traffic however, functions at near-capacity conditions. operations along SE Tacoma Street, particularly Northbound and southbound stop-sign- the traffic signals at SE 13th Avenue and SE 17th controlled movements on the SE 6th Avenue Avenue. These conditions result in eastbound approaches to SE Tacoma Street operate at vehicle queuing across the Sellwood Bridge. LOS F (severely congested). During weekdays, northbound traffic volumes (toward downtown Portland) on OR 43 are Level of service (LOS) is a term used to qualitatively describe the operating heaviest in the morning, while the highway’s conditions of a roadway or intersection. southbound traffic volumes (from downtown The LOS concept requires the Portland) are heaviest in the afternoon. During consideration of several factors, the morning peak hour, north of the Sellwood including travel speed, delay, and Bridge, over 2,600 vehicles per hour travel along frequency of interruptions in traffic flow. The LOS of a facility is designated with northbound OR 43 and 1,000 vehicles travel letters A through F, with A representing southbound. In the afternoon peak hour, Level of Service the best operating conditions and F the 1,900 vehicles per hour travel southerly on worst. OR 43 and 1,200 vehicles travel northerly. During the afternoon peak hour, each of the In June 2004, vehicle weights across the Sellwood signalized intersections in the study area, except Bridge were limited to 10 tons. Currently, over the SE Tacoma Street/SE 17th Avenue 95 percent of all vehicles traversing the bridge intersection, operates at LOS C (moderate

Sellwood Bridge Project F i na l Environmental Impact Statement 3-5 Transportation Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation congestion) or better. The SE Tacoma Street/ for improvement in the access spacing and seek a SE 17th Avenue intersection functions at LOS F deviation from the standard. The project (severely congested), with extensive delays and interchange falls into the category of a backups along SE Tacoma Street and SE 17th non-freeway interchange with two-lane or multi- Avenue. The SE Tacoma Street/SE 13th Avenue lane crossroads in a fully developed urban area. intersection is approaching its capacity. Stop-sign- Along District Highways such as OR 43, the controlled movements from SE 6th Avenue onto minimum access spacing dimension between the or across SE Tacoma Street operate at LOS E end-of-the-ramp acceleration lane and the (congested). nearest at-grade intersection required by ODOT is 1 mile. The existing Willamette Moorage During the morning peak hour, vehicles traveling Park/Macadam Bay Club access is only 1,130 feet westbound along SE Tacoma Street and the from the existing end of the acceleration lane, Sellwood Bridge average 9 miles per hour (mph), and the next intersection at SW Taylors Ferry while those traveling along northbound OR 43 Road is less than 1 mile away. Because all Build average 18 mph. During the afternoon peak hour, alternatives have shorter distances between these vehicles on southbound OR 43 average 8 mph, two points, all alternatives would require a while those traveling along eastbound on the deviation from the standards for approval. Sellwood Bridge and SE Tacoma Street average 7 mph. These speeds reflect the current nearly ODOT also specifies a 1,320-foot spacing over-capacity conditions along SE Tacoma Street standard for the distance between interchange and at the Sellwood Bridge-OR 43 interchange. terminals and the nearest at-grade intersection.

Cut-through Traffic Traffic Safety Cut-through traffic (also known as traffic Over the 5-year period between January 2001 diversion) is a common byproduct of congestion. and December 2005, 68 crashes were reported Motorists, faced with delays at congestion points, on the Sellwood Bridge and OR 43 within a half- seek out alternative routes on the local street mile of the bridge. No fatalities were reported. network to avoid delays. Existing cut-through Sixty-nine percent, or 48 crashes, were rear- traffic problems on the east side include those ending-type collisions. The highest amount of caused by motorists trying to avoid congestion rear-end crashes was along OR 43, where on SE Tacoma Street by using SE 6th Avenue or 18 rear-end crashes were reported over the other north-south local streets to reach and use 5-year period. Eleven rear-end crashes were SE Spokane Street, or other streets that parallel reported on the Sellwood Bridge. SE Tacoma Street. Portland Bureau of Transportation (PBOT) has worked with the Vehicle crash rates experienced for the Sellwood neighborhood over the years to address some of Bridge and OR 43 are higher than the average these problems (for example, by implementing crash rates of comparable roadway facilities in speed bumps). Oregon. Most of the reported crashes occurred in locations where substandard geometric Access Management conditions exist and during congested traffic Oregon Department of Transportation (ODOT) periods. requires the preparation of an Interchange Area Management Plan (IAMP) with an Access ODOT has identified OR 43 within the project’s Management Plan when interchanges are limits as a state highway with potential safety upgraded. The IAMP must demonstrate that the problems. According to ODOT’s Safety Priority interchange and accesses meet access spacing Index System (SPIS), OR 43 at the Sellwood standards set out in OAR 734-051-0155 or plan Bridge interchange and north of and south of the

3-6 Sellwood Bridge Project F i n a l Environmental Impact Statement Transportation C ha p t e r 3 . Existing Environment, Anticipated Impacts, and Mitigation

Sellwood Bridge is in the top 10 percent of passengers, and total revenue of $53,756. The statewide SPIS sites based on a combination of revenue is used for maintenance and operation, crash frequency, severity, and rate. For more and profits benefit the Oregon Electric Railway information about crash history in the study area, Museum. please refer to the Sellwood Bridge Project The trolley line is the subject of a current study Transportation Technical Report (CH2M HILL et al., to convert the track to full daily streetcar service 2008; updated 2010). between Lake Oswego and the South Waterfront Railroad, Trolley Services, and Future District in Portland, where an existing streetcar Streetcar line now ends. Metro, along with the Portland to The East Portland Branch of the Oregon Pacific Lake Oswego Transit and Trail project partners, Railroad runs beneath the Sellwood Bridge along concluded an alternatives analysis to identify the feasibility of a transit and trail project in this the east shoreline of the Willamette River, alongside the Springwater Corridor Trail. The corridor. Metro is currently preparing an environmental impact statement to evaluate owner of the East Portland Traction Company now operates the East Portland Branch of the streetcar and enhanced bus transit options in this corridor. During the project development Oregon Pacific Railroad and transports engines, cars, and equipment from the Oregon Pacific process, Metro will obtain input from the community on the project and the alternatives to Railroad offices south of the Sellwood Bridge in Milwaukie to the East Portland Yard north of the be considered. The proposed cross-section for the streetcar through the project area is two Ross Island Bridge. There are typically two trips (one round trip) per day. tracks co-located with an improved and paved Willamette Greenway Trail (West Bank). (For The Willamette Shoreline Trolley runs along a more information on this trail, see Section 3.8, single set of railroad tracks on the west bank of Parks and Recreation.) A streetcar station is the Willamette River, just east of OR 43. The proposed for the interchange area at the west trolley, which is in operation from May through end of the Sellwood Bridge. October, travels between the Lake Oswego station at State Street and Avenue A and the The City of Portland identifies the OR 43 (SW Macadam Avenue) corridor and the Portland station at SW Bancroft Avenue and SW Moody Street. In May, the trolley makes two Sellwood Bridge as streetcar transit corridors in the Draft Portland Streetcar System Concept Plan round trips each Saturday and Sunday; in June through September, it makes four to five round (2009). The Sellwood Bridge project assumes the trips on Thursdays through Sundays; and in streetcar will be adopted, and the streetcar has October, it makes two round trips on Saturdays. been accommodated in the project design. For Passengers can take a one-way trip or a round more information about how the Sellwood Bridge trip. The trolley does not have a station in the project would accommodate potential future vicinity of the Sellwood Bridge. streetcar plans, see “Willamette Shoreline Trolley, Future Streetcar, and Willamette A consortium of local government agencies owns Greenway Trail (West Bank)” in Section 2.2.2. the Willamette Shoreline Trolley. TriMet holds the title to the right-of-way on behalf of the River Navigation consortium, and the City of Lake Oswego On navigable waters such as the Willamette maintains the operations of the 7-mile right-of- River, the U.S. Coast Guard sets requirements way between River Place in downtown Portland for vertical and horizontal clearances over a and Lake Oswego. For 2007, the General navigation channel within the river to ensure the Manager reported 378 total trips, 5,780 total safe operation of boats. The current vertical

Sellwood Bridge Project F i na l Environmental Impact Statement 3-7 Transportation Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation clearance of the Sellwood Bridge over the subject reach. The largest of the fireboats has a navigation channel is 75 feet Columbia River vertical waterline-to-top-of-vessel measurement Datum (CRD), and horizontal clearance of the of 20 feet. channel is 270 feet. This clearance serves Recreational users include sailboat owners, navigational needs along the river, including yachting associations and clubs, marinas, floating vessels serving Ross Island Sand & Gravel and home moorages, and public and private launch Zidell Marine Corporation. These uses, however, and transient boat facilities. are downstream of the bridge, and these vessels rarely need to travel upstream under the 3.1.2 No Build Alternative Sellwood Bridge. The current vertical clearance of 75 feet is adequate. According to the Columbia Environmental River Towboat Association, businesses and Consequences clients depend on their ability to respond to By 2035, travel demand across the Sellwood whatever unique river transport is required, Bridge is expected to increase to 39,000 vehicles recognizing existing limitations. Towboats with per day, an increase of 33 percent over current tows operate as far south as West Linn. traffic volumes, or about 1 percent per year. As shown in Table 3.1-2, compared to existing travel The cruise, excursion, and chartered boat market patterns, a slightly higher percentage of bridge on the Willamette River has experienced strong traffic is expected to originate from or be growth in recent years. At least seven passenger- destined to Clackamas County. and excursion-vessel companies operate on the Willamette River, using about a dozen vessels. Table 3.1-3 shows the 2035 traffic demand The heaviest times for excursion trips are during percent increase compared to existing conditions. the Rose Festival in late May and early June, and in December when Christmas boats are sailing. More detailed daily and peak-hour traffic forecasts are provided in the Sellwood Bridge City of Portland Fire and Rescue operates three Project Transportation Technical Report fireboats and two rescue boats that respond to (CH2M HILL et al., 2008; updated 2010). situations involving fires, vessels in distress, water rescues, navigational hazards, and environmental Under the No Build Alternative, it is assumed concerns. The City’s Harbormaster reports that the current vehicle weight-limit restrictions fireboats make four to five weekly trips through would remain in place through at least 2035. No the subject reach. The largest of the fireboats buses or heavy trucks would be allowed to use makes four to five weekly trips through the the bridge.

TABLE 3.1-2 Travel Markets of Existing and Future Sellwood Bridge Users Existing 2035 Vehicle Trips Vehicle Trips Between (percent) (percent) East side of Portland and west side of Portland 17 16 Portland and Washington County 11 8 Clackamas County and Washington County 13 12 Clackamas County and Portland 52 55 East side of Clackamas County and west side of Clackamas County 7 9 Source: PBOT.

3-8 Sellwood Bridge Project F i n a l Environmental Impact Statement Transportation C ha p t e r 3 . Existing Environment, Anticipated Impacts, and Mitigation

TABLE 3.1-3 Existing and 2035 Weekday Traffic Demands a.m. Peak Hour p.m. Peak Hour 24-Hour NB/ SB/ NB/ SB/ NB/ SB/ Location Year EB WB Total EB WB Total EB WB Total OR 43 Exist. 1,800 950 2,750 925 1,275 2,200 12,750 13,400 26,150 south of Sellwood 2035 2,475 1,125 3,600 1,200 1,750 2,950 17,100 16,975 34,075 Bridge % Diff. 38% 18% 31% 30% 37% 34% 34% 27% 30%

OR 43 Exist. 2,650 975 3,625 1,225 1,900 3,125 17,825 16,600 34,425 north of Sellwood 2035 3,175 1,275 4,450 1,550 2,250 3,800 21,875 20,575 42,450 Bridge % Diff. 20% 31% 23% 27% 18% 22% 18% 24% 23%

Sellwood Exist. 875 1,700 2,575 1,475 1,100 2,575 14,625 15,000 29,625 Bridge 2035 1,450 2,000 3,450 1,675 1,475 3,150 20,475 18,875 39,350

% Diff. 66% 18% 34% 14% 34% 22% 40% 26% 33%

SE Tacoma Exist. 775 1,375 2,150 1,275 950 2,225 13,525 14,100 27,625 Street west of SE 11th 2035 1,350 1,625 2,975 1,450 1,325 2,775 19,275 18,075 37,350 Avenue % Diff. 74% 18% 38% 14% 39% 25% 43% 28% 35%

SE Tacoma Exist. 650 800 1,450 1,025 725 1,750 11,125 8,975 20,100 Street east of SE 15th 2035 900 1,000 1,900 1,150 950 2,100 13,950 11,475 25,425 Avenue % Diff. 38% 25% 31% 12% 31% 20% 25% 28% 26%

SE Tacoma Exist. 375 700 1,075 650 550 1,200 6,900 7,050 13,950 Street west of SE 23rd 2035 500 875 1,375 750 675 1,425 8,400 8,700 17,100 Avenue % Diff. 33% 25% 28% 15% 23% 19% 22% 23% 26% % Diff. = Percent difference between existing and 2035 weekday traffic demands EB = eastbound Exist. = Existing NB = northbound SB = southbound WB = westbound Source: PBOT.

Transit Service Level of Service and Congestion The existing bus routes (35–Macadam, 36–South With increased traffic demands in 2035, the Shore, 41–Tacoma, and 70–12th Avenue) are roadways and intersections in the study area are expected to continue serving the area under the expected to become more congested. No Build Alternative. The existing Willamette Shoreline Trolley would continue to operate along the single-track railway line on the west bank of the Willamette River.

Sellwood Bridge Project F i na l Environmental Impact Statement 3-9 Transportation Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

By 2035, both the SE Tacoma Street/SE 13th would increase crash frequency along the bridge Avenue and SE Tacoma Street/SE 17th Avenue and at the OR 43 interchange. intersections are predicted to be severely Table 3.1-4 summarizes potential impacts for the congested (LOS F) for over an hour during the No Build Alternative. No mitigation measures are weekday-morning peak period. Backups are planned for these impacts. predicted to extend along the length of westbound SE Tacoma Street, as well as to the 3.1.3 Build Alternatives side-street approaches to SE Tacoma Street. In addition, by 2035, the OR 43/SW Taylors Ferry Environmental Road intersection is expected to be severely Consequences congested (LOS F). Impacts and Mitigation Common to During the 2035 weekday-afternoon peak hour, All Build Alternatives severely congested (LOS F) conditions are Direct Impacts. Direct impacts common to all expected to worsen at SE Tacoma Street/SE 17th Build alternatives include: impacts to vehicle- Avenue, with average delays increasing to almost traffic-carrying capacity; intersection LOS; access 3 minutes. SE Tacoma Street/SE 13th Avenue is to properties from OR 43; connections of the forecasted to degrade to LOS F. These Sellwood Bridge to SE Tacoma Street on the east conditions would lead to long eastbound vehicle and to OR 43 on the west; availability of transit queues along SE Tacoma Street, as well as at services; mix of the types of vehicles using the most side-street approaches to SE Tacoma bridge; traffic safety; railroad, trolley services, and Street. By 2035, the signalized intersection on future streetcar use; and bicyclist and pedestrian OR 43 (which serves the Sellwood Bridge’s facilities. Bridge closure during construction and southbound connection to OR 43 and provides impacts to river navigation are also discussed. access to the River View Cemetery) is also Vehicle-Traffic-Carrying Capacity. None of expected to be severely congested (LOS F). The the Build alternatives would improve congested OR 43/SW Taylors Ferry Road intersection conditions on SE Tacoma Street compared to the would also approach capacity conditions. No Build Alternative. SE Tacoma Street is Traffic Safety presently capacity-constrained. It serves one through traffic lane in each direction and its Under No Build Alternative conditions, all the signalized intersections at SE 13th Avenue and substandard roadway conditions that currently SE 17th Avenue are performing at near-capacity exist would remain. These include the lack of or at over-capacity conditions during peak shoulders on the Sellwood Bridge and at the periods. By 2035, the SE Tacoma Street corridor OR 43 interchange, horizontal curve deficiencies will continue to function at congested conditions at the interchange, and horizontal and vertical for several hours each day, thereby limiting the sight distance limitations along the bridge and at traffic that can travel in either direction across several points within the interchange. These the Sellwood Bridge. Adopted City of Portland attributes are related to the frequency of crashes, and Metro transportation policies indicate no particularly during periods of congested traffic. changes will be made to the number of through Under future No Build Alternative conditions, the travel lanes on SE Tacoma Street, so none of the duration of congestion is expected to increase Build alternatives for this project would be able over current conditions. The presence of the to increase vehicle-traffic-carrying capacity along substandard roadway conditions in conjunction SE Tacoma Street. with the increased traffic levels and congestion

3-10 Sellwood Bridge Project F i na l Environmental Impact Statement Transportation C ha p t e r 3 . Existing Environment, Anticipated Impacts, and Mitigation

TABLE 3.1-4 No Build Alternative: Summary of Potential Impacts Direct Impacts Roadway and Safety Impacts

 Continues to prohibit buses and heavy trucks from using Sellwood Bridge  Results in unacceptable mobility (LOS) at the OR 43 interchange with Sellwood Bridge  Decreases travel speeds along OR 43, Sellwood Bridge, and SE Tacoma Street  Increases vehicle hours of delay throughout the study area  The continued presence of nonstandard geometric and safety features results in high crash potential along the Sellwood Bridge and at its interchange with OR 43 Railroad and Trolley Impacts

 Does not impact existing or planned improvements to railroad and trolley services River Navigation Impacts

 Does not impact existing river navigation Indirect Impacts

 The continued weight restriction impedes transit solutions Cumulative Impacts

 Impedes a sustainable solution for traffic, transit, pedestrian, and bicyclist circulation and connectivity; bridge would eventually need to be closed

In addition, vehicle-traffic-carrying capacity and the bridge would merge to one to provide a performance on the Sellwood Bridge would not transition into the existing cross-section of SE be substantially improved by any of the Build Tacoma Street, limiting eastbound throughput. alternatives. However, the provision of shoulders Similarly, capacity would be constrained for all or bicycle lanes would provide relief when a Build alternatives on OR 43 in the corridor vehicle needed to pull over for servicing or when between Lake Oswego and Portland. This an emergency vehicle needed to pass by. For this corridor is limited by the two-lane cross-section reason, vehicle travel speeds across the bridge south of the bridge and the configuration of the under all the Build alternatives would increase by SW Taylors Ferry Road intersection north of the only 1 to 2 mph during peak periods. bridge. However, under any Build alternative, the Even Alternative C, the only Build alternative that Sellwood Bridge project would improve traffic would provide an additional lane for mixed operations for vehicle trips along OR 43 just vehicles across the entire length of the bridge, north of and south of the Sellwood Bridge. The would operate nearly the same as the other Build additional vehicular-turning lanes on the west end alternatives. Alternative C would provide a of the Sellwood Bridge would facilitate second eastbound lane extending from the movements to and from the various interchange interchange with OR 43 to just west of SE 6th options. This would improve vehicular operations Avenue. However, the two eastbound lanes on by relieving traffic congestion along OR 43’s

Sellwood Bridge Project F i na l Environmental Impact Statement 3-11 Transportation Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation off-ramps to the Sellwood Bridge and along Access to Properties from OR 43. For OR 43’s mainline itself, as well as for traffic Alternatives A through E, the driveway serving traveling west on the Sellwood Bridge bound for the Macadam Bay Club and Willamette Moorage northbound or southbound OR 43. In addition, Park would be relocated approximately 300 feet providing standard-length ramps; adding ramps north of its existing location. The existing entering and exiting from the right side of OR 43 driveway is located about 1,130 feet north of the (instead of from the left, as they currently do); existing northbound on-ramp junction. At its and removing the traffic signal on OR 43 would existing location, the driveway would be between increase OR 43 travel speeds near the Sellwood 400 and 930 feet north of the new ramp junction Bridge compared to the No Build Alternative. (775 feet for the roundabout interchange options These speeds would increase by 3 to 6 mph in Alternatives A and B; 820 feet for the trumpet during the morning peak period and by 7 to interchange option in Alternative C; 930 feet for 8 mph during the afternoon peak period. the single-point signalized option in Alternative D; and 400 feet for the single-point signalized option Higher speeds would mean less delay. Coupled in Alternative E). Because the distance would with the modest time savings afforded motorists affect northbound traffic weaving on OR 43, the traveling through the west-side interchange, the driveway would be relocated as far north as total vehicle hours of delay during peak periods possible. Along District Highways such as OR 43, would be reduced by about 5 percent for the ODOT’s minimum access spacing dimension Build alternatives compared to the No Build between the end-of-the-ramp acceleration lane Alternative. and the nearest at-grade intersection is 1 mile. The 2035 traffic demands in the study area are Neither the current 1,130-foot spacing nor the estimated to be similar under the No Build shorter spacing (400 feet to 930 feet) for Alternative and each of the Build alternatives Alternatives A through E would satisfy this because none of the Build alternatives would standard. A deviation from ODOT’s access increase vehicle-traffic-carrying capacity along standards would be required to build the access OR 43 beyond the immediate area of the bridge at the proposed location. or along SE Tacoma Street east of the bridge. This access point was reevaluated as part of the Therefore, the peak-hour vehicle miles traveled IAMP process that took place after the release of on study area roadways under each of the Build the Draft Environmental Impact Statement (DEIS) alternatives would be similar to those of the No and the public hearing for the project. Build Alternative. However, the Build alternatives Reconsideration after further analysis of the would provide substantially increased person- proposed access point resulted in a modification throughput in the project corridor because the to make the access an additional 50 feet farther Build alternatives could serve mass transit and north than the access proposed in the DEIS. dramatically increase pedestrian and bicycle trips (as discussed in Section 3.2, Bicyclists and Multnomah County, ODOT, and the City of Pedestrians). Portland have agreed on the location of the driveway access to Willamette Moorage Park and Intersection Level of Service. For all Build the Macadam Bay Club for the preferred alternatives, the intersections of SE Tacoma alternative (Alternative D Refined). The existing Street and SE 13th Avenue, SE Tacoma Street access to Willamette Moorage Park and the and SE 17th Avenue, and OR 43 and SW Taylors Macadam Bay Club would be closed to all but Ferry Road would be expected to operate at emergency vehicles. The new driveway access LOS F during the 2035 weekday peak hours. would be relocated approximately 300 feet north of the existing driveway access to increase the

3-12 Sellwood Bridge Project F i na l Environmental Impact Statement Transportation C ha p t e r 3 . Existing Environment, Anticipated Impacts, and Mitigation spacing from the northbound OR 43 on-ramp at roundabout on Alternatives A and B; trumpet on the west-side interchange. However, the spacing Alternative C; and single-point signalized on of this driveway would still be less than the Alternatives D, E, and D Refined. Any of the ODOT access spacing standard. A deviation from options could be integrated with Alternatives A, ODOT’s access spacing standards would be B, C, D, and D Refined. The trumpet could not required to build the access at the proposed be combined with Alternative E. location. See Section 2.3.2 of this FEIS for more information. Transit Services. For the proposed Build alternatives, it is assumed that all the existing bus Under all Build alternatives except Alternative C, routes serving the study area (35–Macadam, 36– a new roadway from the west side of the South Shore, 41–Tacoma, and 70–12th Avenue) interchange would provide access to the River would continue to operate and that the two bus View Cemetery, the Superintendent’s House in routes that were discontinued when weight limit the cemetery, Powers Marine Park, and the Staff restrictions were placed on the bridge (40– Jennings property. ODOT spacing standards Tacoma and 65X–Marquam Hill-Milwaukie require a minimum of 1,320 feet from an Transit Center) would be reinstated. Resumption interchange terminal to the nearest at-grade of the 40–Tacoma and 65X–Marquam Hill- access point. All accesses along this roadway Milwaukie Transit Center bus routes would add would require deviations from ODOT’s access up to five bus trips in each direction along the management standards. bridge, SE Tacoma Street, and OR 43 north of the bridge. East-side Intersection. The intersection of SE Tacoma Street and SE 6th Avenue would be Vehicle Mix. The reintroduction of bus routes impacted under all the Build alternatives and is 40–Tacoma and 65X–Marquam Hill-Milwaukie discussed with respect to each alternative. Four Transit Center under the Build alternatives would options were evaluated: result in a lower percentage of automobile trips along these routes. This change in traffic mix is  No treatment on Alternatives A and B based on the assumption that greater accessibility  Extension of Grand Avenue to create a loop to transit routes would trigger a slight mode shift under the bridge on Alternative C from automobiles to transit, particularly considering the future congestion levels expected  A signal at the SE Tacoma Street at 6th along connecting roadways, as discussed Avenue intersection on Alternatives D and E previously.

 A bicyclist/pedestrian-activated signal at the In addition to allowing buses to use the bridge, SE Tacoma Street/SE 6th Avenue intersection removal of the 10-ton weight restriction would on Alternative D Refined also increase the number of trucks using the bridge. On a daily basis, about 1,600 heavy trucks Each option could be integrated into any of the (three-axle, single-unit trucks and larger) would Build alternatives (except the Grand Avenue be expected to use the bridge. extension, which could not be integrated into Alternative E). Together, trucks and buses would be expected to compose about 4 percent of all vehicles using the West-side Interchange. The interchange bridge each day. connecting the Sellwood Bridge with OR 43 would be impacted under all Build alternatives Traffic Safety. Almost all geometric features and is discussed with respect to each alternative. under the Build alternatives would be designed to Three interchange options were evaluated: meet current standards. These features would

Sellwood Bridge Project F i na l Environmental Impact Statement 3-13 Transportation Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation include provision of shoulders on the Sellwood the retaining wall needed to support the fill or Bridge and at the OR 43 interchange, standard structure at the appropriate railway elevation. horizontal curves, and adequate horizontal and Use of the tracks could be disrupted for as long vertical sight distances. The assumed design as 6 months during construction of the speeds would be 40 mph for OR 43, 35 mph for replacement tracks. the Sellwood Bridge, and 25 mph for all ramps The bicycle/pedestrian paths associated with the between OR 43 and the bridge. bridge and interchange construction are Compared to the No Build Alternative, the integrated with the Willamette Greenway Trail provision of standard features should reduce the (West Bank) planned along the railway, enabling crash potential along the Sellwood Bridge and at full integration of travel modes. All Build the interchange with OR 43. alternatives, except Alternative C, would also offer integration with bus service near the same Access spacing between the interchange and the west-side location. Macadam Bay Club would continue to violate ODOT spacing standards. In addition, spacing Bicyclist and Pedestrian Facilities. Bicyclist between the western access road of the and pedestrian facilities would be improved under roundabout interchange and private driveways all Build alternatives. Because of the large would also violate ODOT spacing standards. commitment to bicyclists and pedestrians made within the design of the project, bicyclist and Railroad, Trolley Services, and Future pedestrian facilities are covered extensively in Streetcar. No direct, permanent impacts are Section 3.2, Bicyclists and Pedestrians. anticipated to the Oregon Pacific Railroad as a result of any of the Build alternatives. Current Bridge Closures during Construction. During uses would be accommodated in the future with construction of Alternatives A, B, and C, lengthy no impacts to current operations. Construction closures of the bridge crossing would be needed over the tracks would likely require new if no temporary detour bridge were provided. easements and agreements for operation and During closures, traffic would divert south to the maintenance. Interstate 205 (I-205) Abernathy Bridge and north to several bridge crossings of the All Build alternatives would require realignment Willamette River, including the Ross Island, of the Willamette Shoreline Trolley tracks. Track Marquam, Hawthorne, Morrison, Burnside, Steel, realignment would cause a temporary disruption Broadway, and Fremont bridges. Of these during construction for as long as 6 months, but bridges, the Ross Island, Hawthorne, and would not result in a permanent impact to trolley Burnside bridges would see the greatest increases operations. The realignment would take into in traffic. Increases on these bridges for the consideration the degree of curvature tolerances morning and evening peak hours would be as for rail stock and the proposed future use of the follows: Ross Island—15.4 percent in morning tracks for streetcar operations. The cross-section and 12.5 percent in evening traffic; Hawthorne— of the replacement is for two tracks and a paved 9.2 percent in morning and 6.3 percent in evening Willamette Greenway Trail (West Bank). The traffic; and Burnside—6.0 percent in morning and project team anticipates purchase of replacement 14.9 percent in evening traffic. Increases on the right-of-way plus sufficient additional right-of-way I-205 Abernathy Bridge would be 5.5 percent in to complete the streetcar project. Sellwood morning and 5.9 percent in evening traffic. All Bridge project costs include rail replacement other bridges would experience less than a right-of-way, construction of one replacement rail 5 percent increase in either the morning or line and the fill to support it, and construction of evening traffic. This same traffic dispersion would

3-14 Sellwood Bridge Project F i na l Environmental Impact Statement Transportation C ha p t e r 3 . Existing Environment, Anticipated Impacts, and Mitigation apply to the No Build Alternative, when Willamette River is navigable, U.S. Coast Guard replacement of the approach was undertaken, approval would be required for all Build and to intermittent temporary closures that alternatives. could be required during construction of any Build alternative. Section 10 of the Rivers and Harbors Act requires authorization from the No designated detour is planned for the closure U.S. Army Corps of Engineers (USACE) because no one route would apply to the for the construction of any structure in majority of travelers and a robust alternative or over any navigable water in the network exists. However, most alternatives United States, the excavation/dredging would require longer travel in both distance and or deposition of material in these waters, or any obstruction or alteration time, out-of-direction travel, or travel on more in a “navigable water.” The Willamette congested routes. Cost impacts of the detour are River at the existing Sellwood Bridge is assessed in Section 3.6, Economic. a navigable water. Section 10 of the Rivers and Harbors Act and Section 404

River Navigation. The Build alternatives, and Harbors Act of the Clean Water Act do overlap in including the bicycle/pedestrian bridge proposed some activities involving wetlands. Section 10 of the Rivers under Alternative A, would have a vertical Consultation with the USACE, once project details have been established, clearance of 75 feet CRD and a horizontal will determine the necessary permit clearance of 270 feet. These vertical and requirements. horizontal clearances characterize the existing Sellwood Bridge. The temporary detour bridge Potential Impacts and Mitigation on Alternative B would have a horizontal Measures Common to All Build clearance of 200 feet. None of the Build Alternatives alternatives would create a new, permanent Table 3.1-5 summarizes potential impacts and constraint to river navigation; all would meet the mitigation measures common to the Build minimum clearance requirements. Because the alternatives.

TABLE 3.1-5 Impacts and Mitigation Measures Common to All Build Alternatives Impact Mitigation Measure Roadway and Safety Impacts Would restore bus service to the Sellwood Bridge and SE Positive impact; no mitigation needed. Tacoma Street (i.e., 40–Tacoma and 65X– Marquam Hill- Milwaukie Transit Center). Compared to No Build Alternative conditions, motorists using PBOT to monitor performance of SE Tacoma the SE Tacoma Street/SE 13th Avenue intersection would Street/SE 13th Avenue intersection. Consider experience a 6- to 8-second increase in delay during 2035 part-time or full-time removal of on-street peak periods (LOS F conditions under both No Build parking on west side of northern (southbound) Alternative and Build alternatives conditions). leg of intersection. Compared to No Build Alternative conditions, average peak- Positive impact; no mitigation needed. period travel speeds on the Sellwood Bridge and SE Tacoma Street would increase by 1 to 2 mph. Average travel speeds on OR 43 would increase by 3 to 8 mph.

Sellwood Bridge Project F i na l Environmental Impact Statement 3-15 Transportation Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

TABLE 3.1-5 Impacts and Mitigation Measures Common to All Build Alternatives Impact Mitigation Measure Compared to No Build Alternative conditions, study area Positive impact; no mitigation needed. peak-period vehicle hours of delay would decrease by about 5 percent. The provision of standard geometric and safety features would Positive impact; no mitigation needed. reduce crash potential along the Sellwood Bridge and at its interchange with OR 43. The spacing on OR 43 between the Sellwood Bridge ODOT has agreed to grant a deviation from the northbound on-ramp junction and the Macadam Bay Club access spacing standard for the driveway access driveway would be substandard for the ODOT access subject to conditions stipulated in the IAMP management spacing standard of 1 mile (ODOT, 1999), which that changes could be made if safety problems potentially would result in unsafe northbound merging, arise in the future. weaving, and/or diverging conditions. Railroad and Trolley Impacts The Build alternatives would require realignment of the Disruption to trolley operations during Willamette Shoreline Trolley tracks. Track realignment would construction would likely be unavoidable. cause a temporary disruption during construction (up to 6 However, establishing a safe work zone and months), but no permanent impact to the trolley operations. flagging the trolley through the construction The trolley alignment is currently under study for conversion area might be safely accommodated during to a daily streetcar service with two tracks, a station near the some points of construction. interchange, and an enhanced Willamette Greenway Trail Replacement is planned for existing right-of-way (West Bank). The plan calls for integration of bicyclists and plus sufficient additional right-of-way for the pedestrians, providing intermodal connections. enhanced plan. The project has assumed the cost for replacing one track; fill or structure associated with one track; and retaining walls for the future plan. No direct, permanent impacts are anticipated to the Oregon Coordination with the Oregon Pacific Railroad Pacific Railroad. However, during construction, uses would be would ensure efficient maintenance of temporarily halted for the construction of overpass structures operations through the project area. New and other construction activities. easement and operations and maintenance agreements would likely be required. River Navigation Impacts None of the Build alternatives would create a new, permanent No mitigation needed. constraint to river navigation. Indirect Impacts Bus use would increase on routes serving Sellwood Bridge and Positive impact; no mitigation needed. SE Tacoma Street. Design provides for bus stops and integrated pathways to bicyclist and pedestrian facilities, as well as a future streetcar station.

3-16 Sellwood Bridge Project F i na l Environmental Impact Statement T ra nsportation Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

Alternative-specific Impacts and to serve Powers Marine Park and the Staff Mitigation Jennings property. Alternative A Under all Build alternatives, eastbound traffic West-side Interchange. In Alternative A, the during the afternoon and evening peak periods interchange of OR 43 and the Sellwood Bridge would be expected to continue to back up across would be in a grade-separated and roundabout the Sellwood Bridge. However, under configuration (Figure 3.1-3). Ramps from the Alternative A, such backups, when reaching the outside lanes of OR 43 would converge at a west-side interchange, would impede traffic flow multi-lane roundabout intersection. This within the roundabout’s circulatory roadway. roundabout would be located above OR 43 This would cause intersection gridlock that might between the northbound off-ramp and on-ramp not occur in other types of controlled and between the southbound off-ramp and on- intersections. This gridlock could exacerbate ramp. OR 43 would have two travel lanes—one traffic backups extending from each approach to in each direction. the roundabout. Introduction of metering lights To facilitate movements from the west-side to control traffic flow into the roundabout from roundabout, there would be two travel lanes OR 43 off-ramps and installation of vehicle queue eastbound, which would merge into one travel detectors on the Sellwood Bridge, tied to the lane on the bridge. Likewise, one travel lane traffic signals at SE Tacoma Street/SE 13th westbound on the bridge would widen to two Avenue and SE Tacoma Street/SE 17th Avenue, travel lanes approaching the west-side would be expected to mitigate these impacts. It roundabout to separate northbound and should be noted that metering lights are not southbound movements and to provide for traditionally elements included in roundabouts, queuing. The roundabout would provide a truck and inclusion of metering lights would extend apron on the inside of the inside lane to traffic queues along OR 43’s off-ramps and accommodate off-tracking during truck potentially onto OR 43. movement through the interchange. The northbound off- FIGURE 3.1-3 ramp, northbound on-ramp, and Alternative A West-side Interchange southbound off-ramp would each widen out to provide two lanes approaching/departing the roundabout. The southbound on- ramp would have one lane. The westbound-to-northbound movement would be provided in separate channelized lanes that would not require motorists making this maneuver to enter the roundabout’s circular roadway. The western approach to the roundabout would serve River View Cemetery and a roadway that would go under the new southern ramps and OR 43

Sellwood Bridge Project F i na l Environmental Impact Statement 3-17 Transportation Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

East-side Intersection. Under Alternative A, on SE 6th Avenue very difficult during peak the Sellwood Bridge would have two traffic lanes hours. Essentially, only right turns could be made on its east end. These two lanes would transition with ease. Traffic levels and operations at the to three lanes easterly along SE Tacoma Street. intersection of SE Tacoma Street and SE 6th Eastbound and westbound left-turn lanes would Avenue would be similar to those expected serve SE 6th Avenue, similar to current under No Build Alternative conditions. Stop-sign- conditions. The SE Tacoma Street/SE 6th Avenue controlled traffic on SE 6th Avenue would intersection would continue to be unsignalized, experience LOS F conditions during the with stop signs controlling SE 6th Avenue traffic. weekday-morning peak hour and LOS E Maintaining existing conditions would either not conditions during the afternoon peak hour. affect or minimally increase cut-through traffic. It Table 3.1-6 summarizes potential impacts and would continue to make north-south operations mitigation measures for Alternative A.

TABLE 3.1-6 Alternative A: Summary of Impacts and Mitigation Measures Impact Mitigation Measure Roadway and Safety Impacts Capacity constraints on SE Tacoma Street would Metering lights to control traffic flow into the extend eastbound traffic across the Sellwood Bridge roundabout from OR 43’s off-ramps and vehicle queue into the roundabout during the afternoon/evening peak detectors on the Sellwood Bridge, tied to the traffic period. This would impede traffic flow and cause signals at SE Tacoma Street/SE 13th Avenue and SE additional traffic delays and queues. Tacoma Street/SE 17th Avenue, would be expected to mitigate these impacts. It should be noted that metering lights are not traditionally elements included in roundabouts, and inclusion of metering lights would extend traffic queues along OR 43’s off-ramps and potentially onto OR 43. The spacing on the western access roadway between As part of an IAMP for this alternative, safe driveway the roundabout and the driveways serving River View access provisions could be developed. Note that Cemetery, Powers Marine Park, and the Staff Jennings driveways are currently accessed directly from OR 43. property would violate ODOT’s access management These driveways have light traffic, so conflicts are not spacing standard. expected. A deviation from the standard would be required. Compared to No Build Alternative conditions, PBOT to monitor performance of SE Tacoma Street/ motorists using the SE Tacoma Street/SE 13th Avenue SE 13th Avenue intersection. Consider part-time or full- intersection would experience a 6- to 8-second time removal of on-street parking on west side of increase in delay during 2035 peak periods (LOS F northern (southbound) leg of intersection. conditions under both No Build Alternative and Build alternatives conditions). Because of capacity constraints on SE Tacoma Street, Metering lights to control traffic flow into the eastbound traffic across the Sellwood Bridge would roundabout from OR 43’s off-ramps would be extend into the roundabout during the considered. In addition, vehicle queue detectors on the afternoon/evening peak period. This would impede Sellwood Bridge, tied to the traffic signals at SE Tacoma traffic flow and cause additional traffic delays and Street/SE 13th Avenue and SE Tacoma Street/SE 17th queues. Avenue, would be considered.

3-18 Sellwood Bridge Project F i na l Environmental Impact Statement Transportation C ha p t e r 3 . Existing Environment, Anticipated Impacts, and Mitigation

TABLE 3.1-6 Alternative A: Summary of Impacts and Mitigation Measures Impact Mitigation Measure Construction Impacts No traffic would be allowed over the existing bridge Traffic would be diverted north to the Ross Island during construction. Traffic would be detoured for 24 Bridge or other bridges to the north, and south to the months during construction. I-205 Abernathy Bridge and the Oregon City Bridge.

Alternative B each widen out to provide two lanes West-side Interchange. With Alternative B, the approaching/departing the roundabout. The interchange of OR 43 and the Sellwood Bridge southbound on-ramp would have one lane. The would be in a grade-separated and roundabout westbound-to-northbound movement would be configuration (Figure 3.1-4). Ramps coming from provided in separate channelized lanes that would the outside lanes of OR 43 would converge at a not require motorists making this maneuver to multi-lane roundabout intersection. This enter the roundabout’s circular roadway. The roundabout would be located above OR 43 western approach to the roundabout would between the northbound off-ramp and on-ramp serve River View Cemetery and a roadway that and between the southbound off-ramp and on- would go under the new southern ramps and OR ramp, OR 43 would have two travel lanes—one 43 to serve Powers Marine Park and the Staff in each direction. Jennings property. To facilitate movements from the west-side FIGURE 3.1-4 roundabout, there would be Alternative B West-side Interchange two travel lanes eastbound, which would merge into one travel lane on the bridge. Likewise, one travel lane westbound on the bridge would widen to two travel lanes approaching the west- side roundabout to separate northbound and southbound movements and to provide for queuing. The roundabout would provide a truck apron on the inside of the inside lane to accommodate off-tracking during truck movement through the interchange. The northbound off-ramp, northbound on-ramp, and southbound off-ramp would

Sellwood Bridge Project F i na l Environmental Impact Statement 3-19 Transportation Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

Under all Build alternatives, eastbound traffic challenges to bicyclists and pedestrians are during the afternoon peak period would be discussed in Section 3.2, Bicyclists and expected to continue to back up across the Pedestrians. Sellwood Bridge. However, under Alternative B, East-side Intersection. Under Alternative B, such backups, when reaching the west-side the Sellwood Bridge would have two traffic lanes interchange, would impede traffic flow within the on its east end. These two lanes would transition roundabout’s circulatory roadway. This would to three lanes easterly along SE Tacoma Street. cause intersection gridlock that might not occur Eastbound and westbound left-turn lanes would in other types of controlled intersections. This serve SE 6th Avenue, similar to current gridlock could exacerbate traffic backups conditions. The SE Tacoma Street/SE 6th Avenue extending from each approach to the intersection would continue to be unsignalized, roundabout. Introduction of metering lights to with stop signs controlling SE 6th Avenue traffic. control traffic flow into the roundabout from OR Maintaining existing conditions would either not 43 off-ramps and installation of vehicle queue affect or minimally increase cut-through traffic. It detectors on the Sellwood Bridge, tied to the would continue to make north-south operations traffic signals at SE Tacoma Street/SE 13th on SE 6th Avenue very difficult during peak Avenue and SE Tacoma Street/SE 17th Avenue, hours. Essentially, only right turns could be made would be expected to mitigate these impacts. It with ease. Traffic levels and operations at the should be noted that metering lights are not SE Tacoma Street/SE 6th Avenue intersection traditionally elements included in roundabouts, would be similar to those expected under No and inclusion of metering lights would extend Build Alternative conditions. Stop-sign-controlled traffic queues along OR 43’s off-ramps and traffic on SE 6th Avenue would experience LOS F potentially onto OR 43. conditions during the weekday-morning peak Alternative B would require bicyclist/pedestrian- hour and LOS E conditions during the afternoon activated signals for access to points across the peak hour. interchange. These signals would impede traffic Table 3.1-7 summarizes potential impacts and flow in the interchange, which is designed for a mitigation measures for Alternative B. more free-flow condition. Potential safety

TABLE 3.1-7 Alternative B: Summary of Impacts and Mitigation Measures Impact Mitigation Measures Roadway and Safety Impacts Because of capacity constraints on SE Tacoma Metering lights to control traffic flow into the roundabout Street, eastbound traffic across the Sellwood Bridge from OR 43 off-ramps and vehicle queue detectors on the would extend into the roundabout during the Sellwood Bridge, tied to the traffic signals at SE Tacoma afternoon/evening peak period. This would impede Street/SE 13th Avenue and SE Tacoma Street/SE 17th traffic flow and cause additional traffic delays and Avenue, would be expected to mitigate these impacts. It queues. should be noted that metering lights are not traditionally elements included in roundabouts, and inclusion of metering lights would extend traffic queues along OR 43’s off-ramps and potentially onto OR 43. Bicyclist/pedestrian-activated signals for access to None anticipated; signals required for bicyclist and points across the interchange would impede traffic pedestrian safety. flow in the interchange.

3-20 Sellwood Bridge Project F i na l Environmental Impact Statement Transportation C ha p t e r 3 . Existing Environment, Anticipated Impacts, and Mitigation

TABLE 3.1-7 Alternative B: Summary of Impacts and Mitigation Measures Impact Mitigation Measures The spacing on the western access roadway As part of an IAMP for this alternative, safe driveway access between the roundabout and the driveways serving provisions would be developed. Note that driveways are River View Cemetery, Powers Marine Park, and the currently accessed directly from OR 43. These driveways Staff Jennings property would violate ODOT’s have light traffic, so conflicts are not expected. A deviation access management spacing standard (ODOT, from the standard would be required. 1999). Construction Impacts No traffic would be allowed over the existing Traffic would be diverted north to the Ross Island Bridge or bridge during construction if no temporary detour other bridges to the north, and south to the I-205 Abernathy bridge were provided. Traffic would be detoured Bridge and the Oregon City Bridge. for 24 months during construction.

Temporary Detour Bridge Option Based on year 2035 traffic projections, traffic An optional temporary detour bridge would would flow unimpeded, except when maintain a river crossing during construction. afternoon/evening peak-period traffic would back Unlike other bridge spans under the Build up across the Sellwood Bridge. However, under alternatives, the temporary detour bridge would the trumpet interchange configuration, compared have a horizontal clearance of 200 feet, less than to the roundabout design, this condition would the current Sellwood Bridge horizontal clearance not affect westbound bridge movements. of 270 feet. The 200-foot clearance would meet Under Alternative C, the Sellwood Bridge would current U.S. Coast Guard requirements, and a have three midspan traffic lanes—one westbound river-user survey conducted for this project did lane and two eastbound lanes. One travel lane not indicate that any users would be specifically westbound on the bridge would widen to two impacted from reducing the horizontal clearance travel lanes entering the west-side interchange through the Sellwood Bridge to 200 feet. with OR 43 to facilitate movements. The two Alternative C eastbound lanes would merge into one eastbound West-side Interchange. In Alternative C, the lane west of the bridge’s overcrossing of SE interchange of OR 43 and the Sellwood Bridge Grand Avenue. would be in a trumpet configuration This alternative would also relocate the existing (Figure 3.1-5). All movements through the grade- trolley line farthest to the east, limiting and separated interchange would have free-flowing complicating options for future trolley line movements and would not be controlled through expansion and improvements to the Willamette a central intersection or traffic signal. The outside Greenway Trail (West Bank). It would reduce traffic lanes on OR 43 approaching the Sellwood operating speed of the streetcar and make future Bridge would diverge from the highway as they location of a station more difficult. ascended to the bridge. The bridge’s ramps to OR 43 would transition to OR 43’s outside lanes. Between the northbound off-ramp and on-ramp and between the southbound off-ramp and on- ramp, OR 43 would have two travel lanes—one in each direction.

Sellwood Bridge Project F i na l Environmental Impact Statement 3-21 Transportation Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

East-side Intersection The existing eastbound Because the SE Grand Avenue extension would left-turn lane at SE 6th Avenue would be enable more convenient access for eastbound removed. Eastbound traffic on the bridge traffic to streets north of SE Tacoma Street, it destined for the north side of SE Tacoma Street, follows that some traffic levels would increase on just east of the bridge, would be directed to turn neighborhood streets north of SE Tacoma Street right onto SE 6th Avenue, and then loop in a in the vicinity of SE 6th Avenue to SE 11th clockwise direction around SE 6th Avenue, SE Avenue. For example, based on projected 2035 Tenino Street, a new SE Grand Avenue extension evening peak-hour traffic volumes, traffic on under the Sellwood Bridge, to SE Spokane Street. SE Spokane Street near SE 6th Avenue could Westbound left turns from SE Tacoma Street increase by about 75 vehicles during the peak onto SE 6th Avenue would still be allowed via an period. uncontrolled left-turn lane. SE 6th Avenue’s The SE Grand Avenue extension, coupled with approaches to SE Tacoma Street would remain the elimination of the eastbound left-turn lane at controlled with stop signs. The extension of SE SE 6th Avenue, as well as perhaps at SE 7th Grand Avenue would improve accessibility Avenue, would enable the provision of in-street between the Sellwood Bridge and the areas north pedestrian refuge islands on SE Tacoma Street’s of SE Tacoma Street and west of SE 13th Avenue, western legs at SE 6th Avenue and SE 7th but could moderately increase cut-through traffic. Avenue. These pedestrian refuge islands could be North-south traffic could also use the SE Grand similar to the existing island on SE Tacoma Avenue undercrossing of the bridge to freely Street’s eastern leg at SE 7th Avenue. Inclusion of move north and south of SE Tacoma Street the pedestrian refuge islands would substantially without engaging a signal or SE Tacoma Street enhance pedestrian movements across itself. SE Tacoma Street at SE 6th Avenue and SE 7th Avenue. Pedestrians crossing at these locations FIGURE 3.1-5 would be able to cross one lane of traffic at a Alternative C West-side Interchange time instead of three lanes with traffic approaching in both directions. Pedestrians would benefit because the number of available gaps between approaching vehicles would increase substantially with the provision of in-street pedestrian refuge islands.

Table 3.1-8 summarizes potential impacts and mitigation measures for Alternative C.

Alternative D West-side Interchange. In Alternative D, the interchange of OR 43 and the Sellwood Bridge would be in a grade-separated and signalized configuration (Figure 3.1-6). Ramps coming

3-22 Sellwood Bridge Project F i na l Environmental Impact Statement Transportation C ha p t e r 3 . Existing Environment, Anticipated Impacts, and Mitigation

TABLE 3.1-8 Alternative C: Summary of l Impacts and Mitigation Measures Impact Mitigation Measure Roadway and Safety Impacts Direct access between River View Cemetery and OR Provide, via pavement marking, a left-turn lane on SW 43 would be removed. Taylors Ferry Road at River View Cemetery’s access roadway. Provide signage on OR 43 guiding motorists to SW Taylors Ferry Road to access River View Cemetery. The SE Grand Avenue extension would provide PBOT to monitor traffic volumes along neighborhood improved accessibility between Sellwood Bridge and roadways, including SE Spokane Street, SE Nehalem areas north of SE Tacoma Street and west of SE 13th Street, and SE 7th Avenue. City to consider Avenue. Moderate levels of increased traffic volumes implementation of additional traffic calming measures, if could result. appropriate. SE Grand Avenue extension would enable provision of pedestrian refuge islands on SE Tacoma Street’s western legs at SE 6th Avenue and SE 7th Avenue, substantially improving pedestrian mobility and safety in crossing SE Tacoma Street. Construction Impacts No traffic would be allowed over the existing bridge Traffic would be diverted north to the Ross Island during construction. Traffic would be detoured for Bridge or other bridges to the north, and south to the 42 months during construction. I-205 Abernathy Bridge and the Oregon City Bridge. Railroad and Trolley Impacts Would relocate the existing trolley line farthest to the None proposed. east, limiting and complicating options for future trolley line expansion and trail improvements. from the outside lanes of OR 43 would converge the 2035 morning peak hour and LOS D at a signalized intersection, located above OR 43 operations during the afternoon peak hour. between the northbound off-ramp and on-ramp During afternoon/evening peak-period traffic and between the southbound off-ramp and conditions, when eastbound traffic backed up on on-ramp. OR 43 would have two travel lanes; the Sellwood Bridge, westbound bridge one in each direction. movements would not be affected under the single-point signalized interchange option The ramps would widen out to provide turning compared to the roundabout option. lanes at the intersection. The western approach to the intersection would serve River View To facilitate movements from the west-side Cemetery and a roadway that would go under interchange with OR 43, two travel lanes the new southern ramps and OR 43 to serve eastbound would merge into one travel lane on Powers Marine Park and the Staff Jennings the bridge. Likewise, one travel lane westbound property. on the bridge would widen to two travel lanes to facilitate movements and queuing at the west-side The signalized intersection would operate interchange. acceptably, providing LOS C operations during

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FIGURE 3.1-6 Alternative D West-side Interchange

East-side Intersection. Under Alternative D, the street were prohibited and if the existing in- eastbound and westbound left-turn lanes would street pedestrian refuge islands at SE 7th Avenue serve SE 6th Avenue, similar to the No Build and SE 8th Avenue were removed. Retaining the Alternative. A traffic signal would be installed to left-turn lanes would allow three through-traffic control all movements at the intersection of SE lanes—one lane in one direction and two lanes in Tacoma Street and SE 6th Avenue. Traffic analysis the other direction. Under this condition, the indicated that a signal at this location would intersection capacity would still be exceeded operate at LOS F, the lowest level. The during peak periods (by up to 20 percent). This intersection would be 40 percent over capacity, condition would continue to cause substantial meaning that vehicles on the bridge would vehicle delays and queuing along SE Tacoma require more than one signal cycle to clear the Street and unacceptable intersection intersection. The effect of the signal on performance. operations on SE Tacoma would be to back up Acceptable intersection performance with a signal traffic into the OR 43 interchange. This condition at SE Tacoma Street and SE 6th Avenue could would result in substantial vehicle delays and likely be accomplished by providing two through queuing along SE Tacoma Street and unacceptable lanes in each direction on SE Tacoma Street. This intersection performance. configuration would require either (1) removing To alleviate this condition and still provide a the left-turn lanes (in addition to removing traffic signal, additional traffic lanes on SE Tacoma on-street parking and the pedestrian refuge Street would be needed. The existing curb-to- islands), resulting in modified traffic circulation curb width on SE Tacoma Street could allow up patterns and increased traffic on several of the to four traffic lanes if parking on the south side of local streets near the east end of the bridge, or

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(2) widening the street, which would require the If a traffic signal were installed at SE 7th Avenue acquisition of private property on one or both or SE 8th Avenue instead of at SE 6th Avenue, sides of SE Tacoma Street between SE Grand effects similar to those described previously Avenue and SE 8th Avenue. would be expected. In addition, it is likely that along SE Tacoma Street more on-street parking Another consequence of installing a signal at or right-of-way acquisition to the east, or both, SE Tacoma Street/SE 6th Avenue is the extra would be required. traffic that would be attracted to entering or exiting SE Tacoma Street at the signalized Because of the negative performance of the location instead of at the various uncontrolled signalized intersection option, Alternative D was and more delayed locations between SE 6th also evaluated with no signal in the Sellwood Bridge Avenue and SE 13th Avenue. Provision of a traffic Project Transportation Technical Report signal would increase traffic levels along the local (CH2M HILL et al., 2008; updated 2010). Level of streets parallel to SE Tacoma Street between service and congestion estimates for SE 6th Avenue and SE 13th Avenue: SE Spokane Alternative D reported throughout this section Street, SE Nehalem Street, SE Tenino Street, and relate to the east-side intersection with no signal. SE Umatilla Street. Table 3.1-9 summarizes potential impacts and mitigation measures for Alternative D.

TABLE 3.1-9 Alternative D: Summary of Impacts and Mitigation Measures Impact Mitigation Measure Roadway and Safety Impacts The spacing on the western access roadway between As part of an IAMP for this alternative, safe driveway the signalized ramp terminal and the driveways serving access provisions would be developed. Note that River View Cemetery, Powers Marine Park, and the driveways are currently accessed directly from OR 43. Staff Jennings property would violate ODOT’s access A deviation from the standard would be required. management spacing standard. Signalization of the SE Tacoma Street/SE 6th Avenue To obtain acceptable LOS conditions with a traffic (or SE Tacoma Street/SE 7th Avenue) intersection signal, SE Tacoma Street would require either would result in LOS F conditions with traffic demands (1) removal of left-turn lanes, on-street parking, and exceeding the intersection’s capacity by about pedestrian refuge islands, or (2) widening SE Tacoma 40 percent. This would cause unacceptable vehicle Street to one or both sides. Both options would delays and queues, as well as substantial increases in increase traffic levels along local streets parallel to SE neighborhood cut-through traffic. Tacoma Street west of SE 13th Avenue. Note: Because of poor performance of this east-side intersection option, Alternative D was also evaluated with no signal (the east-side intersection option in Alternatives A and B). Level of service and congestion estimates reported in this section for Alternative D relate to the east-side intersection with no signal.

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TABLE 3.1-9 Alternative D: Summary of Impacts and Mitigation Measures Impact Mitigation Measure Construction Impacts Staged construction would allow traffic to continue to Not a negative impact, no mitigation is required. cross the river during construction. Half of the new bridge would be built alongside the old bridge, traffic would be maintained on the old bridge, switched to the new half bridge, and the old bridge would be removed. Then the second half of the new bridge would be constructed.

Alternative E and between the southbound off-ramp and on- West-side Interchange. In Alternative E, the ramp, OR 43 would have two travel lanes; one in interchange of OR 43 and the Sellwood Bridge each direction.) would be in a grade-separated and signalized The ramps would widen out to provide turning configuration (Figure 3.1-7). Ramps coming from lanes at the intersection. The western approach the outside lanes of OR 43 would converge at a to the intersection would serve River View signalized intersection, located above OR 43. Cemetery and a roadway that would go under (Between the northbound off-ramp and on-ramp the new southern ramps and OR 43 to serve

FIGURE 3.1-7 Alternative E West-side Interchange

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Powers Marine Park and the Staff Jennings intersection’s capacity would still be exceeded property. during peak periods (by up to 20 percent). This condition would continue to cause substantial The signalized intersection would operate vehicle delays and queuing along SE Tacoma acceptably, providing LOS C operations during Street and unacceptable intersection the 2035 morning peak hour and LOS D performance. operations during the afternoon peak hour. During afternoon/evening peak-period traffic Acceptable intersection performance with a signal conditions, when eastbound traffic backed up on at SE Tacoma Street and SE 6th Avenue could the Sellwood Bridge, westbound bridge likely be accomplished by providing two through movements would not be affected under the lanes in each direction of SE Tacoma Street. This single-point signalized interchange option configuration would require either (1) removing compared to the roundabout option. the left-turn lanes (in addition to removing on- street parking and the pedestrian refuge islands), To facilitate movements and queuing at the west- resulting in modified traffic circulation patterns side travel lane, a right-turn lane would be and increased traffic on several of the local provided approaching the west-side interchange. streets near the east end of the bridge, or East-side Intersection. Under Alternative E, (2) widening the street, which would require the eastbound and westbound left-turn lanes would acquisition of private property on one or both serve SE 6th Avenue, similar to the No Build sides of SE Tacoma Street between SE Grand Alternative. A traffic signal would be installed to Avenue and SE 8th Avenue. control all movements at the intersection of Another consequence of installing a signal at SE Tacoma Street and SE 6th Avenue. Traffic SE Tacoma Street/SE 6th Avenue is the extra analysis indicated that a signal at this location traffic that would be attracted to entering or would operate at LOS F, the lowest level. The exiting SE Tacoma Street at the signalized intersection would be 40 percent over capacity, location instead of at the various uncontrolled meaning that vehicles on the bridge would and more delayed locations between SE 6th require more than one signal cycle to clear the Avenue and SE 13th Avenue. Provision of a traffic intersection. The effect of the signal on signal would increase traffic levels along the local operations on SE Tacoma Street would be to streets parallel to SE Tacoma Street between back up traffic into the OR 43 interchange. This SE 6th Avenue and SE 13th Avenue: SE Spokane condition would result in substantial vehicle Street, SE Nehalem Street, SE Tenino Street, and delays and queuing along SE Tacoma Street and SE Umatilla Street. unacceptable intersection performance. If a traffic signal were installed at SE 7th Avenue To alleviate this condition and still provide a or SE 8th Avenue instead of at SE 6th Avenue, traffic signal, additional traffic lanes on SE Tacoma effects similar to those described previously Street would be needed. The existing curb-to- would be expected. In addition, it is likely that curb width on SE Tacoma Street could allow up along SE Tacoma Street more on-street parking to four traffic lanes if parking on the south side of or right-of-way acquisition to the east, or both, the street were prohibited and if the existing in- would be required. street pedestrian refuge islands at SE 7th Avenue and SE 8th Avenue were removed. Retaining the Because of the negative performance of the left-turn lanes would allow three through traffic signalized intersection option, Alternative E was lanes—one lane in one direction and two lanes in also evaluated with no signal in the Sellwood Bridge the other direction. Under this condition, the Project Transportation Technical Report

Sellwood Bridge Project F i na l Environmental Impact Statement 3-27 Transportation Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

(CH2M HILL et al., 2008; updated 2010). Level of The ramps would widen out to provide turning service and congestion estimates for lanes at the intersection. The western approach Alternative E reported throughout this section to the intersection would serve River View relate to the east-side intersection with no signal. Cemetery and a roadway that would go under the new southern ramps and OR 43 to serve Table 3.1-10 summarizes potential impacts and Powers Marine Park and the Staff Jennings mitigation measures for Alternative E. property.

Alternative D Refined The signalized intersection would operate (Preferred Alternative) acceptably, providing LOS C operations during West-side Interchange. In Alternative D the 2035 morning peak hour and LOS D Refined, the interchange of OR 43 and the operations during the afternoon peak hour. Sellwood Bridge would be in a grade-separated During afternoon/ evening peak-period traffic and signalized configuration (Figure 3.1-8). Ramps conditions, when eastbound traffic backed up on coming from the outside lanes of OR 43 would the Sellwood Bridge, westbound bridge converge at a signalized intersection, located movements would not be affected under the above OR 43 between the northbound off-ramp single-point signalized interchange option and on-ramp and between the southbound off- (compared to the roundabout option). ramp and on-ramp. OR 43 would have two travel lanes (one in each direction), with space to widen To facilitate movements from the west-side to four lanes (two in each direction), if required interchange with OR 43, two travel lanes in the future. eastbound would merge into one travel lane on the bridge. Likewise, one travel lane westbound

TABLE 3.1-10 Alternative E: Summary of Impacts and Mitigation Measures

Impact Mitigation Measures Roadway and Safety Impacts The spacing on the western access roadway As part of an IAMP for this alternative, safe driveway between the signalized ramp terminal and the access provisions would be developed. Note that driveways serving River View Cemetery, Powers driveways are currently accessed directly from OR 43. Marine Park, and the Staff Jennings property This access would be the longest of the alternatives would be less than 1,320 feet, violating ODOT’s proposed. A deviation from the standard would be access management spacing standard. required. Signalization of the SE Tacoma Street/SE 6th To obtain acceptable LOS conditions with a traffic Avenue (or SE Tacoma Street/SE 7th Avenue) signal, SE Tacoma Street would require either intersection would result in LOS F conditions, (1) removing left-turn lanes in addition to on-street with traffic demands exceeding the parking and pedestrian refuge islands, or (2) widening intersection’s capacity by about 40 percent. This SE Tacoma Street to one or both sides. Both options would cause unacceptable vehicle delays and would result in increased traffic levels along local streets queues, as well as substantial increases in parallel to SE Tacoma Street west of SE 13th Avenue. neighborhood cut-through traffic levels. Construction Impacts Traffic would be maintained on the existing Positive impact; no mitigation needed. bridge during construction of the new bridge.

3-28 Sellwood Bridge Project F i na l Environmental Impact Statement Transportation C ha p t e r 3 . Existing Environment, Anticipated Impacts, and Mitigation on the bridge would widen to two travel lanes to south operations on SE 6th Avenue very difficult facilitate movements and queuing at the west-side during peak hours. Essentially, only right turns interchange. could be made with ease. Traffic levels and operations at the SE Tacoma Street/SE 6th East-side Intersection. Under Alternative D Avenue intersection would operate worse than Refined, eastbound and westbound left-turn lanes those expected under No Build Alternative would serve SE 6th Avenue, similar to the No conditions because traffic on SE Tacoma Street Build Alternative. The SE Tacoma Street/SE 6th would need to stop when the signal was Avenue intersection would have a bicyclist/ activated. PBOT would monitor the effects on pedestrian-activated signal. The signal would traffic operations. It would make adjustments, as allow bicyclists and pedestrians to safely cross necessary, to ensure safe and efficient conditions SE Tacoma Street to access the Springwater for motorists traveling along SE 6th Avenue and Corridor Trail (via SE Spokane Street) and the the Sellwood Bridge, as well as for bicyclists, City of Portland-designated bicycle boulevards on pedestrians, and vehicular traffic on SE 6th SE Spokane and SE Umatilla streets. The signal Avenue. would allow vehicles on SE 6th Avenue to cross or turn onto SE Tacoma Street when a bicyclist Table 3.1-11 summarizes potential impacts and or pedestrian activated it. mitigation measures for the preferred alternative (Alternative D Refined). A bicyclist/pedestrian-activated signal would either not affect, or minimally increase, cut- through traffic. It would continue to make north-

FIGURE 3.1-8 Preferred Alternative (Alternative D Refined) West-side Interchange

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TABLE 3.1-11 Preferred Alternative (Alternative D Refined): Summary of Impacts and Mitigation Measures Impact Mitigation Measure Roadway and Safety Impacts The spacing on the western access roadway between An IAMP has been developed that addresses access to the signalized ramp terminal and the driveways serving River View Cemetery, Powers Marine Park, and the River View Cemetery, Powers Marine Park, and the Staff Jennings property. Despite the proximity of the Staff Jennings property would violate ODOT’s access River View Cemetery driveway to the new management spacing standard. interchange, ODOT has agreed to grant a deviation from its access spacing standard to permit access to these three properties via the new roadway (as specified in the IAMP). The volume of traffic on the roadway is expected to be very low and would not adversely affect traffic operations or safety in the interchange. For more information on the IAMP, see “Access to Properties Adjacent to OR 43” in Section 2.3 of this FEIS. According to PBOT, a bicyclist/pedestrian-activated PBOT would monitor the effects on traffic operations. signal at the SE Tacoma Street/SE 6th Avenue It would make adjustments, as necessary, to ensure intersection could result in a slight decrease in safe and efficient conditions for motorists traveling performance of SE Tacoma Street when the signal was along SE 6th Avenue and the Sellwood Bridge, as well activated during congested times. It is not expected as for bicycles, pedestrians, and vehicular traffic on SE that this decrease in performance would reach 6th Avenue. unacceptable levels. Construction Impacts Staged construction would allow traffic to continue to Not a negative impact, no mitigation is required. cross the river during construction. Half of the new bridge would be built alongside the old bridge, traffic would be maintained on the old bridge, switched to the new half bridge, and the old bridge would be removed. Then the second half of the new bridge would be constructed.

roundabout (Alternatives A and B), a trumpet 3.1.4 Summary of Alternatives by (Alternative C), and a single-point signalized Differentiating (Alternatives D, E, and D Refined) interchange. It Transportation Impact is expected that under all three interchange Impacts are discussed below in relation to the types, eastbound traffic during the west-side interchange type and the east-side afternoon/evening peak period would continue to intersection. Tables 3.1-12 and 3.1-13 summarize back up across the Sellwood Bridge. The impacts other differentiating impacts by Build alternative. of such backups, when reaching the west-side interchange, would differ based on the West-side Interchange Type interchange type. Three different grade-separated interchange  Roundabout. Could impede westbound configurations have been proposed for the west traffic flow within the roundabout during the end of the Sellwood Bridge at OR 43—a afternoon/evening peak period because

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eastbound traffic would back up along SE Tacoma Street to SE 6th Avenue would be SE Tacoma Street and the Sellwood Bridge, rerouted to a right-turn loop. The extension which would shut down traffic circulation of SE Grand Avenue would improve within the roundabout. This would cause accessibility between the Sellwood Bridge and intersection gridlock that might not occur in the areas north of SE Tacoma Street and the single-point signalized or trumpet west of SE 13th Avenue, but could interchange types. These impacts could be moderately increase cut-through traffic. mitigated by installation of metering lights to North-south traffic could also use the control traffic flow into the roundabout from SE Grand Avenue undercrossing of the bridge OR 43 off-ramps and vehicle queue detectors to freely move north and south of SE Tacoma on the Sellwood Bridge, tied to the traffic Street without engaging a signal or signals at SE Tacoma Street/SE 13th Avenue SE Tacoma Street itself. This option was and SE Tacoma Street/SE 17th Avenue. evaluated under Alternative C, but could be Metering lights are not traditionally elements incorporated in any of the Build alternatives included in roundabouts, and inclusion of except Alternative E. metering lights would extend traffic queues along OR 43’s off-ramps and potentially onto  Install a signal. The intersection of OR 43. SE Tacoma Street and SE 6th Avenue would include a signal. Installing a signal at the  Trumpet. Would not create traffic gridlock SE Tacoma Street/SE 6th Avenue intersection in the interchange during the peak period. would substantially increase neighborhood This would be a free-flow design in a system cut-through traffic without providing with inherent bottlenecks. improved access to existing land uses. The signal would back up traffic along SE Tacoma  Single-point Signalized. Would not create Street and the bridge into the OR 43 traffic gridlock in the intersection during the interchange. This option was evaluated under peak period. Alternatives D and E, but would not provide East-side Intersection acceptable operations under any of the Build alternatives. At the intersection of SE Tacoma Street and SE 6th Avenue, four options have been evaluated:  Install a bicyclist/pedestrian-activated signal. The intersection of SE Tacoma Street  Maintain existing conditions. An and SE 6th Avenue would have a bicyclist/ eastbound left-turn would be permitted at pedestrian-activated signal that would allow SE 6th Avenue. Maintaining existing bicyclists and pedestrians to safely cross conditions would either not affect or SE Tacoma Street. An eastbound left-turn minimally increase cut-through traffic. It would be permitted at SE 6th Avenue. This would continue to make north-south option would either not affect, or minimally operations on SE 6th Avenue very difficult increase, cut-through traffic. It would during peak hours. Essentially, only right continue to make north-south operations on turns could be made with ease. This option SE 6th Avenue very difficult during peak was evaluated under Alternatives A and B, hours. Essentially, only right turns could be but could accompany any of the Build made with ease. This option was evaluated alternatives. under Alternative D Refined, but could  Create a SE Grand Avenue Loop. accompany any of the Build alternatives. Eastbound left-turn movements from

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Table 3.1-12 summarizes potential differentiating Table 3.1-13 summarizes potential differentiating roadway impacts by Build alternative. construction-related traffic impacts of each Build alternative.

TABLE 3.1-12 Summary of Alternatives by Potential Differentiating Roadway Impacts Alternative Roadway Impacts A Capacity constraints on SE Tacoma Street would result in eastbound traffic queuing across the Sellwood Bridge into the roundabout during the afternoon/evening peak period. This would impede traffic flow and cause additional traffic delays and queues. Metering lights to control traffic flow into the roundabout from OR 43’s off-ramps and vehicle queue detectors on the Sellwood Bridge (tied to the traffic signals at SE Tacoma Street/SE 13th Avenue and SE Tacoma Street/SE 17th Avenue) would be expected to mitigate these impacts. It should be noted that metering lights are not traditionally elements included in roundabouts, and inclusion of metering lights would extend traffic queues along OR 43’s off-ramps and potentially onto OR 43. The spacing on the western access roadway between the roundabout and the driveways serving River View Cemetery, Powers Marine Park, and the Staff Jennings property would violate ODOT’s access management spacing standard. Compared to No Build Alternative conditions, motorists using the SE Tacoma Street/ SE 13th Avenue intersection would experience a 6- to 8-second increase in delay during 2035 peak periods (LOS F conditions under both No Build Alternative and Build alternatives conditions). B and B with Capacity constraints on SE Tacoma Street would result in eastbound traffic queuing across Temporary Detour the Sellwood Bridge into the roundabout during the afternoon/evening peak period. This Bridge would impede traffic flow and cause additional traffic delays and queues. Metering lights to control traffic flow into the roundabout from OR 43 off-ramps and vehicle queue detectors on the Sellwood Bridge (tied to the traffic signals at SE Tacoma Street/SE 13th Avenue and SE Tacoma Street/SE 17th Avenue) would be expected to mitigate these impacts. It should be noted that metering lights are not traditionally elements included in roundabouts, and inclusion of metering lights would extend traffic queues along OR 43’s off-ramps and potentially onto OR 43. The spacing on the western access roadway between the roundabout and the driveways serving River View Cemetery, Powers Marine Park, and the Staff Jennings property would violate ODOT’s access management spacing standard. C Direct access between River View Cemetery and OR 43 would be removed. The SE Grand Avenue extension would provide improved accessibility between Sellwood Bridge and areas north of SE Tacoma Street and west of SE 13th Avenue. Moderate levels of increased traffic volumes could result. D The spacing on the western access roadway between the signalized ramp terminal and the driveways serving River View Cemetery, Powers Marine Park, and the Staff Jennings property would violate ODOT’s access management spacing standard. Signalization of the SE Tacoma Street/SE 6th Avenue (or SE Tacoma Street/SE 7th Avenue) intersection would result in LOS F conditions, with traffic demands exceeding the intersection’s capacity by about 40 percent. This would cause unacceptable vehicle delays and queues, as well as substantial increases in neighborhood cut-through traffic levels.

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TABLE 3.1-12 Summary of Alternatives by Potential Differentiating Roadway Impacts Alternative Roadway Impacts E The spacing on the western access roadway between the signalized ramp terminal and the driveways serving River View Cemetery, Powers Marine Park, and the Staff Jennings property would violate ODOT’s access management spacing standard. Signalization of the SE Tacoma Street/SE 6th Avenue (or SE Tacoma Street/SE 7th Avenue) intersection would result in LOS F conditions, with traffic demands exceeding the intersection’s capacity by about 40 percent. This would cause unacceptable vehicle delays and queues, as well as substantial increases in neighborhood cut-through traffic levels. D Refined The spacing on the western access roadway between the signalized ramp terminal and the (Preferred driveways serving River View Cemetery, Powers Marine Park, and the Staff Jennings Alternative) property would violate ODOT’s access management spacing standard. An IAMP has been developed that addresses access to River View Cemetery, Powers Marine Park, and the Staff Jennings property. ODOT has agreed to grant a deviation from its access spacing standard to permit access to these three properties.

TABLE 3.1-13 Summary of Alternatives by Potential Differentiating Construction-related Traffic Impacts Alternative Construction-related Traffic Impacts on Sellwood Bridge A Traffic would be detoured for 24 months during construction. No temporary detour bridge would be provided. B and B with Traffic would be detoured for 24 months during construction, unless the temporary detour Temporary bridge option was included. Detour Bridge C Traffic would be detoured for 42 months during construction. No temporary detour bridge would be provided. D Staged construction would allow traffic to continue to cross the river during construction. Half of the new bridge would be built alongside the old bridge, and traffic would be maintained on the old bridge. Then traffic would be switched to the new half bridge, and the old bridge would be removed. The second half of the new bridge would be constructed in the location of the old bridge. Following completion of construction, the two halves of the new bridge would be connected. E Traffic would be maintained on the existing bridge during construction of the new bridge. D Refined Staged construction would allow traffic to continue to cross the river during construction. Half of the new bridge would be built alongside the old bridge, and traffic would be maintained on the old bridge. Then traffic would be switched to the new half bridge, and the old bridge would be removed. The second half of the new bridge would be constructed in the location of the old bridge. Following completion of construction, the two halves of the new bridge would be connected. Note: For each Build alternative, traffic on OR 43 would be maintained north and south.

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3.2 Bicyclists and Bicyclists and Pedestrians Summary Pedestrians While the bicyclist and pedestrian facility features would differ among the Build alternatives, all Build alternatives would 3.2.1 Affected Environment substantially improve bicyclist and Sellwood Bridge Bicyclist and pedestrian conditions compared to the No Pedestrian Facilities Build Alternative. All Build alternatives would include wider facilities, new bridge The Sellwood Bridge provides a critical link connections, and fewer motorist conflict between the west and east sides of the points with bicyclists and pedestrians. Willamette River in Portland, but the bicyclist and Compared to the No Build Alternative, pedestrian facilities on the bridge and its the Build alternatives are projected to accommodate a substantial increase in connections with the Springwater Corridor Trail pedestrians and bicyclists. Alternatives A, and Willamette Greenway Trail (West Bank and B (without temporary detour bridge), and East Bank) are deficient. The current bicyclist and C would provide no bicyclist or pedestrian pedestrian facility on the Sellwood Bridge is one access across the river during construction. sidewalk on the north side of the bridge that is 4 feet 3 inches wide. There is no sidewalk on the Sellwood Bridge with the Oregon 43 (OR 43) south side of the bridge. Where light poles are sidewalk, which starts at the bridge’s west end located on the bridge, the sidewalk is only 3 feet before passing beneath the southbound loop wide and cannot accommodate some disabled ramp and northbound bypass ramp. The path’s users. Bicyclists must either use the travel lanes width of 5 to 8 feet does not meet the Oregon or walk their bikes on the narrow sidewalk. Department of Transportation (ODOT) shared- use-path-width standard of 12 feet, and the path’s West-side Bicyclist and Pedestrian grade does not meet Americans with Disabilities Facilities Act (ADA) requirements (5 percent grade for While OR 43 lacks sidewalks within the continuous grade). Within the study area, OR 43 interchange area, a 6-foot-wide sidewalk exists on lacks dedicated bicyclist facilities (such as wide the highway’s east side immediately north of the shoulders or striped bicycle lanes). Bicyclists interchange. A shared-use path connects the currently share travel lanes with motorists, and bicyclists and pedestrians share the Sidewalk on the north side of the Sellwood Bridge. sidewalk immediately north of the interchange (mentioned previously). The sidewalk serves as part of the Willamette Greenway Trail (West Bank), described subsequently.

OR 43, the northbound bypass ramp, the southbound loop ramp, and the River View Cemetery access road intersect at a signalized intersection just south of the Sellwood Bridge. Pedestrian signals and a crosswalk are located on the intersection’s west side to facilitate north- south pedestrian crossings. The intersection lacks crosswalks and

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The interchange’s northbound bypass ramp lacks sidewalks and bicycle lanes, and has a 2-foot-wide right-side shoulder. The interchange’s southbound loop ramp lacks sidewalks, bicycle lanes, and a right-side shoulder.

Between downtown Portland and the Sellwood Bridge, the Willamette Greenway Trail (West Bank) follows the Willamette River shoreline. North of the Sellwood Bridge, the trail is a narrow sidewalk on the east side of OR 43 The shared-use path begins at the bridge’s west end and passes immediately north of the Sellwood beneath the southbound loop ramp and northbound bypass Bridge (described earlier). A ramp. narrow unpaved segment exists within Powers Marine Park, south pedestrian-activated signals for east-west of the Sellwood Bridge. The trail’s vertical crossings, forcing bicyclists and pedestrians to clearance beneath interchange ramps does not make judgments about when it is safe to cross meet ODOT standards. Outside the study area, OR 43. There is a TriMet bus stop at the River the trail has shared-use segments that pass View Cemetery access road intersection on through Willamette Park and on-street segments OR 43. Pedestrians and bicyclists use a grass path that pass through Portland’s South Waterfront west and south of the bridge as an informal path District. to access this signalized intersection. East-side Bicyclist and Pedestrian Facilities Sidewalks are continuous on SE Tacoma Street and crosswalks are provided at SE 13th Avenue and SE 17th Avenue. Immediately east of the bridge, the intersection of SE Tacoma Street and SE 6th Avenue lacks marked crosswalks and curb ramps. SE Tacoma Street does not have designated bicyclist facilities. Instead, the City of Portland identifies SE Spokane Street and SE Umatilla Street as “bicycle boulevards,” which are low-traffic through streets that bicyclists can use to avoid SE Tacoma Street. Bicyclists connect with SE Tacoma Street and the Sellwood Bridge using a low-volume cross street, such as SE 6th Avenue. Heavy traffic volumes can pose problems for bicyclists and pedestrians crossing SE Tacoma Bicyclists on the shared-use path at the Street. bridge’s west end.

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Shared-use paths on the east side include the team extrapolated the Sellwood Bridge counts to Springwater Corridor Trail and Willamette estimate daily usage and to adjust for seasonal Greenway Trail (East Bank). In addition to these variations. Table 3.2-1 presents existing daily trails, there are internal paths in nearby parks, bicyclist and pedestrian use across the including the Sellwood Riverfront Park and Sellwood Bridge. Sellwood Park (northeast of Sellwood Riverfront Park). Within the study area, the Springwater TABLE 3.2-1 Corridor Trail is 12 feet wide with soft shoulders Sellwood Bridge Existing Daily Bicyclist and on each side. Users access the trail from Pedestrian Use SE Spokane and SE Umatilla streets. The trail Bicyclists Pedestrians Total passes beneath the Sellwood Bridge west of Weekday 440 90 530 SE 6th Avenue. South of the bridge, the trail ends at SE Umatilla Street, where a gap exists between Weekend SE Umatilla Street and SE 19th Avenue. Day 600 210 810 Pedestrians from the Sellwood Bridge can access the Springwater Corridor Trail via a stairway. The west-side interchange also serves Some segments of the stairway have handrails on nonmotorized users passing through the one side only, and the stairway lacks level interchange but not using the bridge (e.g., landings. bicyclists traveling between River View Cemetery The Willamette Greenway Trail (East Bank) and the Willamette Greenway Trail [West follows the Willamette River shoreline between Bank]). Approximately 80 additional bicyclists and Sellwood Riverfront Park and SE Linn Street. An pedestrians use the interchange (but not the uncompleted segment exists between SE Umatilla bridge) on weekdays and weekend days. Street and SE Sherrett Street. Future No Build Alternative Demand To develop an appropriate growth rate for the The Springwater Corridor Trail Sellwood Bridge under No Build Alternative connects downtown Portland with conditions, the project team considered Trail southeast Portland, Milwaukie, Gresham, Sandy, and Boring. The similarities and dissimilarities between the 21-mile corridor connects several parks Sellwood Bridge and other downtown Portland and open spaces, including Tideman bridges. Ultimately, the team assumed a linear Johnson Nature Park, Beggars-Tick 5 percent growth rate to reflect the continued Wildlife Refuge, the I-205 Path, Leach Botanical Garden, Powell Butte Nature presence of substandard bicyclist and pedestrian Park, and Gresham’s Main City Park. facilities, as well as completion of several planned The segment of the Springwater bicyclist and pedestrian projects near the Corridor Trail at the Sellwood Bridge study area. Springwater Corridor opened in 2003. The No Build Alternative year 2035 estimated 3.2.2 Bicyclist and Pedestrian daily bicyclist and pedestrian use is shown in Demand Table 3.2-2. Current Bicyclist and Pedestrian Usage Using bicyclist and pedestrian count data from the Sellwood Bridge in 2008 (weekday and weekend counts) and count data from other Willamette River bridges in Portland, the project

3-36 Sellwood Bridge Project F i na l Environmental Impact Statement Bicyclists and Pedestrians Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

immediate 205 percent bicyclist/pedestrian trip TABLE 3.2-2 Sellwood Bridge No Build Alternative Year 2035 increase. Beyond this latent demand, each Daily Bicyclist and Pedestrian Use Projections scenario was assigned an annual growth rate based on the annual growth rates experienced on Bicyclists Pedestrians Total the Broadway, Burnside, Hawthorne, and Steel Weekday 1,640 330 1,970 bridges over the past 16 years (as documented by Weekend the Portland Bureau of Transportation). Each Day 2,270 760 3,030 scenario assumed higher nonmotorized growth rates during years immediately following Build alternative completion (because of bridge novelty, Under the No Build Alternative, the west-side promotional efforts, and increased recreational interchange area would serve additional bicyclist activity), followed by a leveling-off of growth and pedestrian traffic that does not cross the through 2035. The scenarios differed in terms bridge, but that travels between the River View of when the “leveling off” period would take Cemetery and points north. An additional place. 299 nonmotorized trips are estimated on both weekdays and weekend days. Bicyclist/Pedestrian Demand as a Proportion of Vehicle Demand Future Build Alternatives Demand In addition to the three growth scenario The project team developed projections using projections completed under the comparative several of the Federal Highway Administration analysis approach, the project team prepared a (FHWA)-recommended approaches for projection based on estimated bicyclist/pedestrian estimating bicyclist and pedestrian demand demand as a proportion of anticipated motor (FHWA, 1999) to arrive at 2035 projections for vehicle demand. This approach incorporated bicyclist and pedestrian use under the Build mode share data from the American Community alternatives. Survey (U.S. Census Bureau, 2006), the City of Portland Auditor’s Report (City of Portland, Latent demand means that some 2007a), and Metro Regional Trails strategy, as bicyclists and pedestrians would use well as historical bicyclist/pedestrian mode-share the Sellwood Bridge but do not use it growth trends citywide and in the Sellwood because the walking and bicycling Bridge’s immediate vicinity. This projection environment is unsafe and uncomfortable. In other words, some assumed a 0.5 percent growth rate for both people who would normally walk or bicyclist and pedestrian mode shares every bicycle across the Sellwood Bridge 5 years. This translates into bicyclist and are either using other travel modes or

Latent Demand pedestrian commute mode shares in 2035 of crossing the Willamette River on about 9 percent and 6 percent, respectively. This other bridges. Bicyclist and Pedestrian is a low growth rate compared with Portland’s bicyclist commute mode-share increase in this Comparative Analysis Approach part of Portland—from less than 2 percent in To project 2035 bicyclist and pedestrian 2000 to over 4 percent in 2006 (U.S. Census use under the comparative analysis approach, the Bureau, 2006) or 6 percent (City of Portland, project team developed three scenarios. Each 2007a). scenario included an estimated latent demand calculated by applying the growth rate To estimate recreational demand under this experienced on the Steel Bridge (the bridge most scenario, the project team used a 2007 bicycle resembling the Sellwood Bridge) immediately count on the Springwater Corridor Trail near the following the Riverwalk opening in 2001—an Sellwood Bridge. Because pedestrian volume data

Sellwood Bridge Project F i na l Environmental Impact Statement 3-37 Bicyclists and Pedestrians Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation were not available, the project team assumed challenges would include substandard, narrow pedestrian volumes equaled roughly 50 percent bicyclist and pedestrian facilities; difficult of bicyclist volumes. Given the popularity of transitions between the bridge and the recreational “loops” involving the Springwater surrounding bicyclist and pedestrian network; and Corridor Trail, Sellwood Bridge, and the potential safety conflicts among vehicles, Willamette Greenway Trail (West Bank), the bicyclists, and pedestrians. project team estimated that roughly 50 percent The following bicyclist and pedestrian impacts of Springwater Corridor Trail users include the would continue under the No Build Alternative: Sellwood Bridge on their trips. It was further estimated that recreational trips would increase  Limited facilities on the bridge structure roughly 10 percent every 5 years, reflecting (narrow sidewalk on the north side of the numerous planned recreational trail projects in bridge), which create dangerous and unsafe the study area’s vicinity. passing maneuvers for bicyclists and pedestrians sharing this narrow bridge Total 2035 Bicyclist and Pedestrian sidewalk Demand The project team used the average of the  Difficult connections between the bridge four projections to arrive at the projected 2035 sidewalk and the surrounding bicyclist and demand under the Build alternatives pedestrian facilities (unclear routing and (Table 3.2-3). substandard facilities)

TABLE 3.2-3  Difficult and unsafe connections through the Sellwood Bridge Build Alternatives Year 2035 west-side interchange area, including limited Daily Bicyclist and Pedestrian Use Projections bicyclist and pedestrian facilities, limited sight Bicyclists Pedestrians Total distances, circuitous routing, and vehicle conflicts with bicyclists and pedestrians Weekday 7,760 1,590 9,350 Weekend  Difficult and unsafe connections to the Day 10,620 3,730 14,350 TriMet bus stop at the OR 43/River View Cemetery access road intersection due to limited bicyclist and pedestrian facilities and Under the Build alternatives, the west-side neither crosswalks nor a bicyclist/pedestrian- interchange area would also serve additional activated signal at the intersection bicyclist and pedestrian traffic that does not cross  Difficult crossings of SE Tacoma Street during the bridge. An additional 1,420 nonmotorized heavy traffic and minimal bicyclist and trips are estimated on an average weekday, and pedestrian crossing treatments on SE Tacoma an additional 1,330 nonmotorized trips are Street estimated on an average weekend day. In addition, bridge closure for 6 to 8 months 3.2.3 No Build Alternative during maintenance activities would eliminate the Environmental bicyclist and pedestrian river crossing for that time period. Consequences Existing deficiencies in the bicyclist and pedestrian facilities would continue under the No Build Alternative. The bridge would continue to challenge bicyclist and pedestrian circulation, affecting the overall system. These continued

3-38 Sellwood Bridge Project F i na l Environmental Impact Statement Bicyclists and Pedestrians Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

on the Willamette Greenway and 3.2.4 Build Alternatives Springwater Corridor trails and in area parks Environmental Consequences  Increased bicycle and pedestrian use across Impacts and Mitigation Common the bridge is expected to increase both “walk to All Build Alternatives by” traffic in the Sellwood commercial district Direct Impacts. The Build alternatives would and commercial activity substantially improve bicyclist and pedestrian conditions over the No Build Alternative because Alternative-specific Impacts and the Build alternatives would include wider Mitigation facilities, new connections, and fewer conflict Alternative A points with vehicles. Alternative A would provide a separate bicycle/pedestrian bridge north of the existing Construction equipment staging and construction bridge (Figure 3.2-1). The bicycle/pedestrian activities in the west-side interchange area could bridge would have 20 feet of usable space and necessitate temporary access closures between accommodate bi-directional bicyclist and River View Cemetery and the Willamette pedestrian traffic. The width would be wide Greenway Trail (West Bank). Bicyclists and enough to provide separation between bicyclists pedestrians would be redirected to detour and pedestrians through striping and pavement routes, such as SW Taylors Ferry Road. These markings or informal user patterns. Separation of routes might be circuitous, and on roadways with bicyclists and pedestrians from vehicles crossing high traffic volumes, high vehicle speeds, and the river would reduce potential conflicts and limited or no bicyclist and pedestrian facilities. enhance user comfort. However, a separate Construction equipment staging and construction bicycle/pedestrian bridge would remove “eyes on activities could necessitate temporary the street,” which could potentially leave Springwater Corridor Trail closures near the bicyclists and pedestrians vulnerable to crime or existing Sellwood Bridge. Bicyclists and unable to receive immediate help during an pedestrians would be redirected to detour emergency. routes, which would depend on the location of FIGURE 3.2-1 the trail closure, the topography, and the street Alternative A Bridge Cross-sections system connectivity. Signage on detour routes would be added to alert drivers to the presence of bicyclists and pedestrians.

During final design, Multnomah County would coordinate bicyclist and pedestrian facilities with the Portland Bureau of Transportation and the Portland to Lake Oswego Transit and Trail project (see “Railroad, Trolley Services, and Future Streetcar” in Section 3.1.1 for a description of this project).

Indirect Impacts. Indirect impacts for all Build A spiral ramp would provide access to the alternatives include the following: Willamette Greenway Trail (West Bank) from the  Improved bicycle and pedestrian facilities are west end of the bicycle/pedestrian bridge expected to attract additional recreation use (Figure 3.2-2). On the east side, access to east-side trails and parks would be via SE Grand Avenue and

Sellwood Bridge Project F i na l Environmental Impact Statement 3-39 Bicyclists and Pedestrians Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

SE Spokane Street. Directional signs and pavement Superintendent’s House at River View Cemetery, markings would aid user access. and to access the roadway leading to Powers Marine Park and the the Staff Jennings property. A bicycle/pedestrian overpass from the separate Traffic volumes would be lower in that location bridge across OR 43 would allow for direct access than in the other three approaches of the to the River View Cemetery access road. The roundabout. separate bicycle/pedestrian bridge north of the west-side interchange would eliminate most Table 3.2-4 summarizes bicyclist and pedestrian conflicts between vehicles and bicyclists and impacts and potential mitigation. pedestrians at the west-side interchange. The roundabout’s west approach is the only potential Alternative B Alternative B would provide a 10-foot-wide conflict point (Figure 3.2-2). Nonmotorized users shared sidewalk on both sides of the bridge to would cross this approach leg to reach the

FIGURE 3.2-2 Alternative A West-side and East-side Bicyclist and Pedestrian Facilities

3-40 Sellwood Bridge Project Final Environmental Impact Statement Bicyclists and Pedestrians Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

TABLE 3.2-4 Alternative A Bicyclist and Pedestrian Impacts and Potential Mitigation Bicyclist and Pedestrian Impacts Potential Mitigation Separate bicyclist and pedestrian facility would reduce Positive impact; no mitigation needed conflicts with vehicles on bridge Separate bicyclist and pedestrian facility would eliminate Positive impact; no mitigation needed direct conflicts with vehicles in west-side interchange Would have bi-directional bicyclist and pedestrian Stripe bicycle/pedestrian bridge and provide pavement traffic (no separated facilities) markings Complete separation from other bridge users would Install lighting, emergency call boxes, and security cause safety and security concerns cameras and conduct routine police patrols Would have a challenging crossing environment for Install a bicyclist/pedestrian-activated signal (including visually impaired pedestrians on the roundabout’s west audible signal) or flashing warning lights, marked leg crosswalk, warning signage, ADA-compliant curb ramps, and/or detectable warning strips Would have difficult crossings of SE Tacoma Street Install marked crosswalks, warning signage, pedestrian during heavy traffic and minimal crossing treatments refuge islands, and/or pedestrian signals at the SE Tacoma Street/SE 6th Avenue intersection Would have potentially unclear routing between bridge Install signage and pavement markings and eastside bicyclist and pedestrian facilities Bridge closure during construction would eliminate Construct bicycle/pedestrian bridge before closing the bicyclist and pedestrian river crossing existing bridge Would have grade changes between Sellwood Bridge/Se Provide way-finding signage and pavement markings; Tacoma Street corridor and the separate install traffic calming devices on streets connecting with bicycle/pedestrian bridge bicycle/pedestrian bridge with surface streets to increase safety

accommodate bicyclist and pedestrian traffic minimize conflicts. Bicyclists would connect with (Figure 3.2-3). This cross-section would balance the SE Spokane Street and SE Umatilla Street the space dedicated to motor vehicles and Bicycle Boulevards via SE 6th Avenue nonmotorized users, enhancing bicyclist and (Figure 3.2-4). This route would also be used to pedestrian comfort. Alternative B would retain access the Springwater Corridor Trail. However, the “eyes on the street” by having all modes on bicyclists might encounter difficult crossings of one bridge deck and structure, which would SE Tacoma Street during heavy traffic and make bicyclists and pedestrians less vulnerable to because there are minimal crossing treatments crime and more visible to passing vehicles in the (such as crosswalks or signals). Using a more event of an emergency. circuitous route on other nearby streets, nonmotorized users could avoid the at-grade The 10-foot-wide sidewalks/shared-use paths crossing of SE Tacoma Street. could potentially accommodate bi-directional bicyclist and pedestrian traffic, though 10-foot- wide shared-use facilities on other Portland bridges (such as the Hawthorne Bridge) are marked and signed for one-way bicycle traffic to

Sellwood Bridge Project Final Environmental Impact Statement 3-41 Bicyclists and Pedestrians Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

crossings would enhance bicyclist and pedestrian safety and comfort at these conflict points. The unsignalized crossings could adversely impact visually impaired pedestrians. A roundabout does not provide audible cues for traffic breaks, and sidewalks do not lead directly to perpendicular crosswalks (which could make movements potentially unsafe and difficult for visually impaired pedestrians). If nonmotorized crossings of the roundabout’s northern legs were prohibited, bicyclists and pedestrians could FIGURE 3.2-3 encounter circuitous routing while attempting to Alternative B Bridge Cross-section pass through the interchange area (e.g., traveling between the Sellwood Bridge and the On the west side, bicyclists and pedestrians southbound bus stop). passing through the roundabout would encounter The west-side interchange spiral ramps on the at least one conflict point with vehicles (Figure 3.2-4). Traveling around the roundabout Sellwood Bridge’s north and south sides would would create a more circuitous path for bicyclists offer convenient connections for bicyclists and and pedestrians than with other interchange pedestrians to the Willamette Greenway Trail types. The roundabout would provide marked (West Bank). The spiral ramps would facilitate bicyclist and pedestrian crossings on the north, slow but continuous movement for bicyclists by south, and west legs, and would include minimizing out-of-direction travel. pedestrian-activated signals at the OR 43 Table 3.2-5 summarizes bicyclist and pedestrian northbound entrance and exit ramps, and at the impacts and potential mitigation. OR 43 southbound exit ramp. The signalized

3-42 Sellwood Bridge Project F i na l Environmental Impact Statement Bicyclists and Pedestrians Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

FIGURE 3.2-4 Alternative B West-side and East-side Bicyclist and Pedestrian Facilities

Sellwood Bridge Project F i na l Environmental Impact Statement 3-43 Bicyclists and Pedestrians Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

TABLE 3.2-5 Alternative B Bicyclist and Pedestrian Impacts and Potential Mitigation Bicyclist and Pedestrian Impacts Potential Mitigation Shared-use path and bike lanes would separate Positive impact; no mitigation needed differing user types and reduce conflicts “Eyes on the street” would provide user safety and Positive impact; no mitigation needed security Would have bi-directional pedestrian traffic and one- Install signage and markings for one-way bicycle travel way bicycle traffic to minimize user conflicts Would have a challenging crossing environment for Install bicyclist/pedestrian-activated signal (including visually impaired pedestrians at the unsignalized audible signal) or flashing warning lights, marked roundabout crossings crosswalk, warning signage, ADA-compliant curb ramps, and/or detectable warning strips Would have circuitous routing between the bridge’s Provide bicyclist and pedestrian crossings on north side and River View Cemetery/southbound bus roundabout’s north leg stop Bridge closure during construction would eliminate Construct temporary detour bridge bicyclist and pedestrian river crossing (without temporary detour bridge)

Alternative C activities, and dumping. In addition, pigeons find Alternative C would provide a separate such facilities attractive for their nests, which bicycle/pedestrian deck below the vehicular causes problems with pigeon droppings. bridge deck (Figure 3.2-5). The bicycle/pedestrian deck would have 20 feet of usable space, accommodate bi-directional bicyclist and pedestrian traffic, and be wide enough to provide FIGURE 3.2-5 separation between bicyclists and pedestrians Alternative C Bridge Cross-section through striping and pavement markings or informal user patterns. Separation of bicyclists and pedestrians from vehicles crossing the river would reduce potential conflicts and enhance user comfort. However, a separate bridge deck for bicyclists and pedestrians would remove “eyes on the street,” which could potentially leave bicyclists and pedestrians vulnerable to crime or unable to receive immediate help during an emergency. Noise from vehicles on the upper deck would make it difficult for motorists to hear sounds from the lower deck, increasing the isolation of bicyclists and pedestrians. The City of Portland’s experience with similar covered facilities indicates that these spaces, which provide weather protection, invite camping, illegal

3-44 Sellwood Bridge Project F i na l Environmental Impact Statement Bicyclists and Pedestrians Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

FIGURE 3.2-6 Alternative C West-side and East-side Bicyclist and Pedestrian Facilities

The separate bicycle/pedestrian deck would Bicyclists and pedestrians traveling between River eliminate direct conflicts with vehicles in the View Cemetery and the Willamette Greenway west-side interchange (Figure 3.2-6). Bicyclists Trail (West Bank) would encounter an at-grade and pedestrians would use a series of grade- streetcar crossing. The availability and extent of separated linear and switchback ramps below crossing treatments could impact bicyclist and OR 43 and the west-side interchange to access pedestrian safety. At the east end, a spiral ramp River View Cemetery. Switchback ramps might would provide a direct and convenient create the perception of circuitous travel and connection between the bridge and the greater time to overcome relatively short Springwater Corridor Trail for bicyclists and distances. Switchback ramps could be difficult to pedestrians. Bicyclists and pedestrians would also maneuver on a bicycle or in a wheelchair. A ramp use a spiral ramp on the north side of the bridge would provide access from the bridge to the to connect with SE Spokane Street and Willamette Greenway Trail (West Bank). SE Umatilla Street. Bicyclists and pedestrians

Sellwood Bridge Project F i na l Environmental Impact Statement 3-45 Bicyclists and Pedestrians Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

TABLE 3.2-6 Alternative C Bicyclist and Pedestrian Impacts and Potential Mitigation Bicyclist and Pedestrian Impacts Potential Mitigation Separate bicyclist and pedestrian facility would reduce Positive impact; no mitigation needed conflicts with vehicles on bridge Separate bicyclist and pedestrian facility would eliminate Positive impact; no mitigation needed direct conflicts with vehicles in west-side interchange Would have bi-directional bicyclist and pedestrian Stripe lower bridge deck and provide pavement traffic (no separated facilities) markings Complete separation from other bridge users would Install lighting, emergency call boxes, and security cause safety and security concerns cameras, and conduct routine police patrols Would have difficult turning maneuvers and a Provide wide switchback ramps to accommodate wide perception of circuitous routing on switchback ramps turning movements Would have grade changes between the Sellwood Provide way-finding signage and pavement markings; Bridge/ SE Tacoma Street corridor and the separate install traffic calming devices on streets connecting the bicycle/pedestrian bridge deck bicycle/pedestrian bridge deck with surface streets to increase safety Bridge closure during construction would eliminate Construct temporary detour bridge bicyclist and pedestrian river crossing traveling between the east end of the bridge and The presence of bicycle lanes and SE Tacoma Street would encounter a circuitous sidewalks/shared-use paths would provide route, which would involve using the Springwater choices for bicyclists of varying skills and Corridor Trail, SE Spokane or SE Tenino streets, confidence levels. Alternative D would retain the and SE 6th Avenue. Users might also encounter “eyes on the street” by having all modes on one circuitous routing if pedestrian crossings of bridge deck and structure, which would make SE Tacoma Street at SE 6th Avenue were bicyclists and pedestrians less vulnerable to crime prohibited in conjunction with proposed left-turn and more visible to passing vehicles in the event movement restrictions for vehicles. Eastbound of an emergency. bicyclists might find an easier connection across Assuming pedestrians would remain on the SE Tacoma Street to SE Spokane Street by using bridge’s north or south side while passing the SE Grand Avenue extension. Table 3.2-6 through the west-side interchange area, they summarizes bicyclist and pedestrian impacts and would encounter three to four vehicle conflict potential mitigation. points (Figure 3.2-8). Several ramp approaches Alternative D would include multiple, high-volume vehicle travel The 12-foot-wide shared sidewalk/path on both lanes. Although pedestrians would use marked sides of the bridge would accommodate bi- crosswalks with pedestrian-activated signals to directional bicyclist and pedestrian traffic, cross, heavy vehicle right-turn movements (for enabling bicyclists and pedestrians to use the example, westbound-to-northbound) could most convenient side of the bridge (Figure 3.2-7). create uncomfortable crossing conditions and The sidewalks/shared-use paths would enhance potential conflicts. The signalized interchange user safety and comfort by providing additional would provide direct routing through the west- distance from motor vehicle traffic. Alternative D side interchange area between the bridge and would also provide 6.5-foot-wide bicycle lanes. River View Cemetery.

3-46 Sellwood Bridge Project F i na l Environmental Impact Statement Bicyclists and Pedestrians Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

The west-side interchange spiral ramps on the Table 3.2-7 summarizes bicyclist and pedestrian Sellwood Bridge’s north and south sides would impacts and potential mitigation. offer convenient connections for bicyclists and pedestrians to the Willamette Greenway Trail (West Bank). The spiral ramps would facilitate FIGURE 3.2-7 slow but continuous movement for bicyclists by Alternative D Bridge Cross-section minimizing out-of-direction travel. On the east side, bicyclists would connect with the SE Spokane Street and SE Umatilla Street bicycle boulevards via SE 6th Avenue. This route would also be used to access the Springwater Corridor Trail. The signalized intersection at SE Tacoma Street and SE 6th Avenue would improve bicyclist and pedestrian crossing of SE Tacoma Street.

FIGURE 3.2-8 Alternative D West-side and East-side Bicyclist and Pedestrian Facilities

Sellwood Bridge Project F i na l Environmental Impact Statement 3-47 Bicyclists and Pedestrians Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

TABLE 3.2-7 Alternative D Bicyclist and Pedestrian Impacts and Potential Mitigation Bicyclist and Pedestrian Impacts Potential Mitigation Wide paths on both sides of the bridge would Positive impact; no mitigation needed accommodate bi-directional bicyclist and pedestrian traffic with no conflicts Path width would provide separation from vehicles; Positive impact; no mitigation needed would enhance user safety and comfort Bicycle lane width would provide sufficient room to Positive impact; no mitigation needed maneuver around obstructions “Eyes on the street” would provide user safety and Positive impact; no mitigation needed security Would have no long-term bridge closure during Positive impact; no mitigation needed construction Signalized intersection would improve bicyclist and Positive impact; no mitigation needed pedestrian crossing of SE Tacoma Street Bicyclists and pedestrians would have conflicts with Install high-visibility crosswalks, audible pedestrian motorists making turning movements in west-side signals, pedestrian countdown signals, and/or leading interchange area pedestrian interval at west-side interchange signal

Alternative E The 16-foot-wide sidewalk/shared-use path on the bridge’s north side would accommodate bi- directional nonmotorized traffic (Figure 3.2-9). The 8-foot-wide south sidewalk/shared-use path could serve one-way eastbound bicycle traffic and two-way pedestrian traffic. This one-way bicycle/two-way pedestrian configuration reflects similar configurations on other Portland-area FIGURE 3.2-9 bridges (such as the Hawthorne Bridge) to Alternative E Bridge Cross-section minimize user conflicts. However, the 8-foot- wide facility would be narrow for a shared visible to passing vehicles in the event of an bicyclist and pedestrian facility and could create a emergency. visual perception of narrowness and minimal distance between the sidewalk/shared-use path Assuming pedestrians would remain on the and vehicles. A curb between the vehicular lanes bridge’s north or south side while passing and the sidewalks/shared-use paths would through the west-side interchange area, provide separation from motorized traffic. pedestrians would encounter three to four Alternative D would retain the “eyes on the vehicle conflict points (Figure 3.2-10). Several street” by having all modes on one bridge deck ramp approaches would include multiple, high- and structure, which would make bicyclists and volume vehicle travel lanes. Although pedestrians pedestrians less vulnerable to crime and more would use marked crosswalks with pedestrian- activated signals to cross, heavy vehicle right-turn movements (for example, westbound-to-

3-48 Sellwood Bridge Project F i na l Environmental Impact Statement Bicyclists and Pedestrians Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation northbound) could create uncomfortable crossing direction travel. Alternative E would not provide conditions and potential conflicts. The signalized a direct connection to the Willamette Greenway interchange would provide direct routing through (West Bank) from the bridge’s southern the west-side interchange area between the sidewalk/shared-use path. Therefore, bicyclists bridge and River View Cemetery. and pedestrians on the south sidewalk would need to maneuver through the interchange to On the east side, the signalized intersection at access the spiral ramp on the north side of the SE Tacoma Street and SE 6th Avenue would bridge. This would be a circuitous path and would improve bicyclist and pedestrian crossings of increase the number of bicyclist and pedestrian SE Tacoma Street. conflict points with vehicles. The west-side interchange spiral ramp on the Table 3.2-8 summarizes bicyclist and pedestrian Sellwood Bridge’s north side would offer impacts and potential mitigation. nonmotorized users connections to the Willamette Greenway Trail (West Bank). The spiral ramp would facilitate slow but continuous movement for bicyclists by minimizing out-of-

FIGURE 3.2-10 Alternative E West-side and East-side Bicyclist and Pedestrian Facilities

Sellwood Bridge Project F i na l Environmental Impact Statement 3-49 Bicyclists and Pedestrians Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

TABLE 3.2-8 Alternative E Bicyclist and Pedestrian Impacts and Potential Mitigation Bicyclist and Pedestrian Impacts Potential Mitigation North path width would accommodate bi-directional Positive impact; no mitigation needed bicyclist and pedestrian traffic with no conflicts North path width would provide separation from Positive impact; no mitigation needed vehicles; would enhance user safety and comfort “Eyes on the street” would provide user safety and Positive impact; no mitigation needed security Would have no bridge closure during construction Positive impact; no mitigation needed Signalized intersection would improve bicyclist and Positive impact; no mitigation needed pedestrian crossing of SE Tacoma Street South path would accommodate one-way bicycle Install signage and markings for one-way bicycle travel traffic and two-way pedestrian traffic to minimize user conflicts Bicyclists and pedestrians would have conflicts with Install high-visibility crosswalks, audible pedestrian motorists making turning movements in west-side signals, pedestrian countdown signals, and/or leading interchange area pedestrian interval at west-side interchange signal Lack of south spiral ramp in west-side interchange Install signage at bridge’s east and west ends to direct would create circuitous routing for some users bicyclists and pedestrians to use the bridge’s north side to access the Willamette Greenway Trail (West Bank)

Alternative D Refined Pedestrians passing through the west-side (Preferred Alternative) interchange area would encounter three to four Alternative D Refined would have the same vehicle conflict points (Figure 3.2-11). Several bicyclist and pedestrian facilities as Alternative D ramp approaches would include multiple, high- on the bridge (see Figure 3.2-7). The 12-foot- volume vehicle travel lanes. wide sidewalks/shared-use paths on both sides of the bridge would accommodate bi-directional Although pedestrians would use marked bicyclist and pedestrian traffic, enabling bicyclists crosswalks with pedestrian-activated signals to and pedestrians to use the most convenient side cross, heavy vehicle right-turn movements (for of the bridge. The sidewalks/ shared-use paths example, westbound-to-northbound) could would enhance user safety and comfort by create uncomfortable crossing conditions and providing additional distance from motor vehicle potential conflicts. The signalized interchange traffic. Alternative D Refined would also provide would provide direct routing through the west- 6.5-foot-wide on-street bicycle lanes. side interchange area between the bridge and River View Cemetery. The presence of bicycle lanes and sidewalks/shared-use paths would provide Alternative D Refined would have switchback choices for bicyclists of varying skills and ramps along the side of OR 43 that would confidence levels. Alternative D Refined would connect to the existing north-south trail network retain the “eyes on the street” by having all rather than the spiral ramps that were included in modes on one bridge deck and structure, which Alternative D (Figure 3.2-11). These switchback would make bicyclists and pedestrians less ramps would offer convenient connections for vulnerable to crime and more visible to passing bicyclists and pedestrians to the Willamette vehicles in the event of an emergency. Greenway Trail (West Bank). They would facilitate slow but continuous movement for

3-50 Sellwood Bridge Project F i na l Environmental Impact Statement Bicyclists and Pedestrians Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation bicyclists and pedestrians by minimizing out-of- be used to access the Springwater Corridor Trail. direction travel. The switchback ramps would The bicyclist/pedestrian-activated crossing signal comply with the ADA and would be similar to at the intersection of SE Tacoma Street and the switchback ramps on the Eastbank Esplanade SE 6th Avenue would improve bicyclist and at the Rose Quarter. pedestrian crossing of SE Tacoma Street.

On the east side, bicyclists would connect with Table 3.2-9 summarizes bicyclist and pedestrian SE Spokane Street and SE Umatilla Street bicycle impacts and potential mitigation. boulevards via SE 6th Avenue, which would also

TABLE 3.2-9 Preferred Alternative (Alternative D Refined) Bicyclist and Pedestrian Impacts and Potential Mitigation Bicyclist and Pedestrian Impacts Potential Mitigation Wide paths on both sides of the bridge would Positive impact; no mitigation needed accommodate bi-directional bicyclist and pedestrian traffic with no conflicts Path width would provide separation from vehicles; Positive impact; no mitigation needed would enhance user safety and comfort Bicycle lane width would provide sufficient room to Positive impact; no mitigation needed maneuver around obstructions “Eyes on the street” would provide user safety and Positive impact; no mitigation needed security Would have no long-term bridge closure during Positive impact; no mitigation needed construction Bicyclist/pedestrian-activated signalized intersection at Positive impact; no mitigation needed SE 6th Avenue would improve bicyclist and pedestrian crossing of SE Tacoma Street Bicyclists and pedestrians would have conflicts with Install high-visibility crosswalks, audible pedestrian motorists making turning movements in west-side signals, pedestrian countdown signals, and/or leading interchange area pedestrian interval at west-side interchange signal

Sellwood Bridge Project F i na l Environmental Impact Statement 3-51 Bicyclists and Pedestrians Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

FIGURE 3.2-11 Preferred Alternative (Alternative D Refined) West-side and East-side Bicyclist and Pedestrian Facilities

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3.2.5 Summary of Alternatives by Differentiating Bicyclist and Pedestrian Impact

TABLE 3.2-10 Summary of Alternatives by Differentiating Bicyclist and Pedestrian Impact Alternative Impacts No Build  Would have limited facilities on bridge structure (narrow sidewalk on the north side)  Would involve dangerous passing maneuvers for bicyclists and pedestrians sharing the narrow bridge sidewalk  Would have difficult connections between bridge sidewalk and surrounding bicyclist and pedestrian facilities (unclear routing and substandard facilities)  Would have difficult and unsafe connections through west-side interchange area (limited bicyclist and pedestrian facilities, limited sight distances, circuitous routing, and bicyclist and pedestrian conflicts with vehicles)  Would have difficult and unsafe connections to TriMet bus stop at OR 43/River View Cemetery access road intersection (limited bicyclist and pedestrian facilities and neither crosswalks nor a bicyclist/pedestrian-activated signal at intersection)  Would have difficult crossings of SE Tacoma Street during heavy traffic and minimal bicyclist and pedestrian crossing treatments  Bridge closure for maintenance activities would eliminate bicyclist and pedestrian river crossing for that time period A  Separate bicyclist and pedestrian facility would reduce conflicts with vehicles on bridge  Separate bicyclist and pedestrian facility would eliminate direct conflicts with vehicles in west-side interchange  Would have bi-directional bicyclist and pedestrian traffic (no separated facilities)  Complete separation from other bridge users would cause safety and security concerns  Would have a challenging crossing environment for visually impaired pedestrians on the roundabout’s west leg  Would have difficult crossings of SE Tacoma Street during heavy traffic and minimal crossing treatments  Would have potentially unclear routing between bridge and eastside bicyclist and pedestrian facilities  Would have grade changes between the Sellwood Bridge/SE Tacoma Street corridor and the separate bicycle/pedestrian bridge  Bridge closure during construction would eliminate bicyclist and pedestrian river crossing

Sellwood Bridge Project F i na l Environmental Impact Statement 3-53 Bicyclists and Pedestrians Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

TABLE 3.2-10 Summary of Alternatives by Differentiating Bicyclist and Pedestrian Impact Alternative Impacts B  Shared-use path and bike lanes would separate differing user types and reduce conflicts  “Eyes on the street” would provide user safety and security  Would have bi-directional pedestrian traffic and one-way bicycle traffic  Would have a challenging crossing environment for visually impaired pedestrians at the unsignalized roundabout crossings  Would have circuitous routing between the bridge’s north side and River View Cemetery/southbound bus stop  Bridge closure during construction would eliminate bicyclist and pedestrian river crossing (without temporary detour bridge) C  Separate bicyclist and pedestrian facility would reduce conflicts with vehicles on bridge  Separate bicyclist and pedestrian facility would eliminate direct conflicts with vehicles in west-side interchange  Would have bi-directional bicyclist and pedestrian traffic (no separated facilities)  Complete separation from other bridge users would cause safety and security concerns  Would have difficult turning maneuvers and a perception of circuitous routing on switchback ramps  Would have grade changes between the Sellwood Bridge/SE Tacoma Street corridor and the separate bicycle/pedestrian bridge deck  Bridge closure during construction would eliminate bicyclist and pedestrian river crossing D  Wide paths on both sides of the bridge would accommodate bi-directional bicyclist and pedestrian traffic with no conflicts  Path width would provide separation from vehicles; would enhance user safety and comfort  Bicycle lane width would provide sufficient room to maneuver around obstructions  “Eyes on the street” would provide user safety and security  Would have no long-term bridge closure during construction  Signalized intersection would improve bicyclist and pedestrian crossing of SE Tacoma Street  Bicyclists and pedestrians would have conflicts with motorists making turning movements in west-side interchange area

3-54 Sellwood Bridge Project F i na l Environmental Impact Statement Bicyclists and Pedestrians Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

TABLE 3.2-10 Summary of Alternatives by Differentiating Bicyclist and Pedestrian Impact Alternative Impacts E  North path width would accommodate bi-directional bicyclist and pedestrian traffic with no conflicts  North path width would provide separation from vehicles; would enhance user safety and comfort  “Eyes on the street” would provide user safety and security  Would have no bridge closure during construction  Signalized intersection would improve bicyclist and pedestrian crossing of SE Tacoma Street  South path would accommodate one-way bicycle traffic and two-way pedestrian traffic  Bicyclists and pedestrians would have conflicts with motorists making turning movements in west-side interchange area  Lack of south spiral ramp in west-side interchange would create circuitous routing for some users Preferred  Wide paths on both sides of the bridge would accommodate bi-directional (D Refined) bicyclist and pedestrian traffic with no conflicts  Path width would provide separation from vehicles; would enhance user safety and comfort  Bicycle lane width would provide sufficient room to maneuver around obstructions  “Eyes on the street” would provide user safety and security  Would have no long-term bridge closure during construction  Bicyclist/pedestrian-activated signalized intersection at SE 6th Avenue would improve bicyclist and pedestrian crossing of SE Tacoma Street  Bicyclists and pedestrians would have conflicts with motorists making turning movements in west-side interchange area

Sellwood Bridge Project F i na l Environmental Impact Statement 3-55 R i g ht - o f - Way and Relocation Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

Right-of-Way and Relocation Summary 3.3 Right-of-Way and The Build alternatives would permanently acquire between approximately 8.9 and Relocation 11.6 acres, displace a minimum of one and a maximum of six residences, and displace 3.3.1 Affected Environment a minimum of 9 and a maximum of 48 businesses. Provisions as required under Residential Properties the Uniform Relocation Assistance and The following residential properties are referred Real Property Acquisition Policies Act of to in this section and shown on Figure 3.3-1. 1970, as amended, would be implemented for all business and residential  Sellwood Harbor. A 39-unit, gated displacements and for real property residential condominium development acquisitions. located south of the Sellwood Bridge between the Willamette River and the units along the riverbank and, to the east, a Springwater Corridor Trail. multilevel condominium building.

 River Park. A 49-unit residential  Grand Place. A mixed-used building located condominium development located north of north of SE Tacoma Street, bounded by the SE Tacoma Street and south of SE Spokane Springwater Corridor Trail on the west, Street between the Springwater Corridor SE Spokane Street to the north, and Trail and the Willamette River. This SE Grand Avenue to the east. The building development includes two-level condominium was completed in 2007 and has six condominium units. FIGURE 3.3-1 Residential and Commercial Properties

3-56 Sellwood Bridge Project F i na l Environmental Impact Statement R i g ht - o f - Way and Relocation Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

 Macadam Bay Club. A moorage of floating (northwest quadrant of the SE Tacoma homes on the Willamette River east of Street/SE 6th Avenue intersection). OR 43 and adjacent to Willamette Moorage  River View Cemetery. River View Park. Cemetery, a not-for-profit organization, owns the right-of-way west of OR 43 in the Commercial Properties project area. The cemetery currently owns The following commercial properties are referred approximately 310 acres. The to in this section and shown on Figure 3.3-1. Superintendent’s House, which is operated as a funeral home, is part of the cemetery.  River Park Center. A commercial building with 37 businesses located between the  Willamette Shoreline Trolley and Willamette River and SE Oaks Park Way at Future Streetcar. A commercial trolley 205 SE Spokane Street. service runs along the west bank of the Willamette River, just east of OR 43. The  Sellwood Building. A professional office Willamette Shoreline Consortium purchased building with attached garage and storage the Willamette Shoreline right-of-way from shed. The building is located below the east the Southern Pacific Railroad in 1988. The approach of the existing bridge at 380 SE Consortium (comprised of ODOT; Metro; Spokane Street and is partitioned into nine the cities of Portland and Lake Oswego; office spaces. Clackamas and Multnomah counties; and  Grand Place. A mixed-used building located TriMet) manages the 7-mile right-of-way north of SE Tacoma Street, bounded by the between River Place in downtown Portland Springwater Corridor Trail on the west, and Lake Oswego. SE Spokane Street to the north, and SE Grand Avenue to the east. The building Government actions designed to was completed in 2007 and has space for two benefit the public as a whole sometimes result in the displacement businesses, but both spaces are currently of people from their homes and vacant. businesses. The Uniform Relocation Assistance and Real Property  Staff Jennings Property. A former Acquisition Policies Act of 1970 (as commercial boat dealership with a fuel dock, amended in 1987; Uniform Act) boathouse, boat storage, and paint shop. The provides important protections and business closed in March 2010. The property assistance for people affected by federally funded projects. The is located north of the existing bridge at 8240 Uniform Act was enacted by the SW Macadam Avenue (OR 43) on the west United States Congress to ensure side of the Willamette River (located that people whose real property is between Powers Marine Park and Willamette Relocation Assistance acquired, or who have to move as a result of federally funded projects, are Moorage Park). treated fairly and equitably and receive assistance in moving from the  Brinsfield Boat Basin. A commercial property they occupy. used-boat dealership located immediately north and south of SE Tacoma Street  East Portland Branch of the Oregon between SE Grand Avenue and SE 6th Pacific Railroad. This railroad line runs Avenue at the east end of the existing bridge. beneath the Sellwood Bridge on the east  Riverside Corral. An adult entertainment bank of the Willamette River, alongside the lounge located at 525 SE Tacoma Street Springwater Corridor Trail. The East Portland Traction Company infrequently

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transports engines, cars, and equipment using 3.3.3 Build Alternatives the railroad line. Environmental Park and Recreational Facilities Consequences The following park and recreational facilities are Impacts and Mitigation Common to located in the area and are referred to as All Build Alternatives parkland and recreational facility impacts in this Direct Impacts. The following direct impacts section. would be common to the Build alternatives:  Sellwood Riverfront Park  Residential. Access to Macadam Bay Club  Oaks Pioneer Park would be modified. The existing access point, which is also the access point for Willamette  Powers Marine Park Moorage Park, would be relocated north of the existing access point. The access  Willamette Moorage Park modification would not affect on-site  Springwater Corridor Trail functions of the Macadam Bay Club.

 Sellwood Bridge Recreational Trail  Commercial. The Sellwood Building office building and its nine businesses  Willamette Greenway Trail (SE Spokane (30 employees total) would be displaced. The Street Section) viability of the nine businesses is not  Willamette Greenway Trail (East Bank) dependent on their specific locations.

 Willamette Greenway Trail (West Bank)  Willamette Shoreline Trolley and Future Streetcar. All Build alternatives Impacts to parkland and recreational facilities are would require moving the trolley right-of-way included in the right-of-way cost and impact eastward into Powers Marine Park and the calculations in this section, but impacts are not Staff Jennings property. The replacement described in the text. Section 3.9, Parks and right-of-way and design of the Build Recreation, discusses impacts to park and alternatives would be sufficient for two tracks recreational facilities. for the proposed streetcar and a paved Willamette Greenway Trail (West Bank). The 3.3.2 No Build Alternative ground level slopes steeply down to the river Environmental east of OR 43. Therefore, moving the rail Consequences tracks to the east would require placing them on fill or structure and building a retaining There would be no foreseeable adverse impacts wall to support the fill and minimize in relation to right-of-way or relocation under encroachment into the park. The cost the No Build Alternative. included in this project is for the replacement of existing right-of-way and additional right- of-way required for a realigned double track; the track replacement; any fill or structure required; and the construction of any necessary retaining walls.

 Condominium Units. All Build alternatives other than Alternative E would require the

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demolition of at least one condominium unit. Sales listings for residential properties are an A qualified engineer obtained from the City indication of the potential for finding viable of Portland Bureau of Development Services relocation sites for displaced residents. Analysis construction plans for the River Park and of sales listings recognizes the unique character of Sellwood Harbor condominium potential residential displacements. More sales developments. This engineer studied the listings indicate a greater potential for relocating plans and also surveyed these residential a displaced resident to a comparable location. A developments on-site to assure that partial snapshot survey of current condominium listings structure demolition and reconstruction of was conducted in November 2009. the remaining adjacent condominium units (Condominiums were researched because the and common areas would be structurally Build alternatives would impact at least one feasible. condominium, but no single-family detached units would be displaced.) At that time, there were Indirect Impacts. No indirect impacts would 26 condominium units listed in the 97202 zip be common to the Build alternatives. code and 53 units listed in the 97214 zip code Mitigation. The designs of the Build alternatives (inner southeast Portland zip codes), ranging in have attempted to minimize displacements and price from $100,000 to $835,000. Riverfront impacts to private property. Federal and state condominiums were also available outside statutes regulate most aspects of mitigation for southeast Portland, including in Lake Oswego and property acquisition. The Uniform Relocation in the Johns Landing and South Waterfront areas Assistance and Real Property Acquisition Policies of southwest Portland. Act of 1970 (as amended in 1987; Uniform Act) Based upon this analysis, a reasonable inventory regulates procedures for providing replacement of replacement residential properties is available. housing and business relocation assistance. According to Multiple Listing Service data, the Provisions as required under the Uniform Act monthly supply of housing (total inventory/ would be implemented for all business and monthly sales) was 7.6 months in September residential displacements, and for real property 2009. acquisitions. All property owners would be The Sellwood Building is typical of available lease compensated at fair market value, and relocation inventory in the metropolitan area. Therefore, a assistance would be provided in accordance with reasonable inventory of replacement business the Uniform Act. Residential relocation benefits units is also available, and alternative lease space are based on the characteristics of individual is available within the parameters of the affected properties and usually include replacement rental unit. Where existing access points to housing for owners and renters, moving costs, properties would be closed, new access points and assistance in locating replacement housing. (and driveway extensions, when necessary), Relocation benefits for businesses can include would be provided. moving costs, site search expenses, and business reestablishment expenses. Relocation efforts for Alternative-specific Impacts displaced residents, businesses, and public The following information identifies direct and services for this project would generally be indirect impacts unique to each Build alternative. focused on relocation within the same neighborhood, when possible, to minimize Impacts to publicly owned land, such as parks and impacts associated with relocation. recreational trails, are included in the total amount of right-of-way acquired, but are not described in detail in this section. See Section 3.9

Sellwood Bridge Project F i na l Environmental Impact Statement 3-59 R i g ht - o f - Way and Relocation Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

(Parks and Recreation) and the Final Section 4(f) 49-unit condominium complex would be Evaluation for a complete discussion of impacts demolished and displaced. to park and recreational resources. Figure 3.3-2 Other direct impacts: illustrates tax lots impacted by any of the Build  River Park. The acquisition of one alternatives. Table 3.3-1 summarizes tax lot residential condominium unit in this 49-unit impacts (in acres) by Build alternative. This table condominium complex would necessitate the illustrates the acreage of land acquisition only. reconstruction of the remaining adjacent For building displacements, see Figures 3.3-3 condominium unit and common areas. through 3.3-7. Fourteen parking spaces under the existing Alternative A bridge would be displaced during Direct Impacts. Alternative A would construction. There is adequate parking in permanently acquire approximately 10.5 acres of the area to accommodate the displacement land area. Displacements that would occur under of these parking spaces during construction. Alternative A, including those common to all After construction, these parking spaces Build alternatives, are shown on Figure 3.3-3. would be restored either at or near their existing location. Acquired residences:  One condominium unit in River Park. One residential condominium unit in this

FIGURE 3.3-2 Impacted Tax Lots

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TABLE 3.3-1 Tax Lot Impacts (in acres) by Build Alternative Alternative (in acres) Reference Owner Number (Public Property) B with D Refined (Figure or Use Temporary (Pref. 3.3-2) (Private Property) A B Detour Bridge C D E Alt.) 1 TriMet 0.04 0.04 0.04 0.03 0.04 0.06 0.03 2 City of Portland 0.00 0.09 0.09 0.08 0.09 0.10 0.13 3 City of Portland 0.21 0.21 0.21 0.19 0.21 0.27 0.00 4 City of Portland 0.01 0.01 0.01 0.01 0.01 0.13 0.14 5 City of Portland 0.00 0.00 0.00 0.00 0.00 0.07 0.04 6 TriMet 0.00 0.00 0.00 0.09 0.00 0.11 0.04 7 City of Portland 0.93 0.46 0.46 1.44 0.46 1.16 0.00 8 TriMet 2.23 2.23 2.23 2.34 2.23 2.22 1.51 9 ODOT 0.07 0.07 0.07 0.07 0.07 0.07 0.07 10 Staff Jennings Property 0.19 0.19 0.19 0.19 0.19 0.19 0.19 11 Staff Jennings Property 0.11 0.11 0.11 1.31 0.11 0.82 0.09 12 ODOT 0.03 0.03 0.03 0.03 0.03 0.03 0.03 13 City of Portland 0.02 0.02 0.03 0.08 0.02 0.02 0.06 14 City of Portland 1.40 1.98 2.01 1.31 1.94 0.70 0.96 15 City of Portland 0.13 0.13 0.13 0.07 0.13 0.00 0.13 16 TriMet 0.21 0.21 0.21 0.11 0.21 0.00 0.21 17 City of Portland 0.02 0.02 0.02 0.01 0.02 0.00 0.01 18 River View Cemetery 0.96 0.96 0.96 0.59 0.97 1.79 1.55 19 River View Cemetery 2.44 2.44 2.44 1.36 2.44 1.64 2.28 20 River View Cemetery 0.00 0.00 0.00 0.00 0.00 0.00 0.08 21 River View Cemetery 0.19 0.19 0.19 0.13 0.19 0.00 0.08 22 City of Portland 0.38 0.00 0.00 0.00 0.00 0.00 0.00 23 River Park Center 0.01 0.00 0.00 0.00 0.00 1.02 0.00 24 River Park 0.18 0.28 0.28 0.27 0.19 0.00 0.10 Condominiums 25 Sellwood Harbor 0.24 0.38 0.38 0.32 0.62 0.00 0.60 Condominiums 26 Metro 0.09 0.00 0.00 0.00 0.00 0.12 0.00 27 City of Portland 0.12 0.00 0.00 0.00 0.00 0.00 0.00 28 Sellwood Building 0.15 0.23 0.23 0.52 0.26 0.52 0.26 29 Metro 0.11 0.16 0.16 0.14 0.19 0.10 0.20 30 Grand Place 0.00 0.00 0.00 0.00 0.00 0.13 0.00 31 Brinsfield Boat Basin 0.00 0.00 0.16 0.00 0.00 0.19 0.02 32 Riverside Corral 0.00 0.00 0.15 0.00 0.00 0.08 0.03 33 Brinsfield Boat Basin 0.00 0.00 0.00 0.10 0.05 0.00 0.05 34 Brinsfield Boat Basin 0.00 0.00 0.00 0.00 0.03 0.00 0.04 Total 10.5 10.5 10.8 10.8 10.7 11.6 8.9 Notes: Bold italicized numbers indicate full acquisition of the tax lot. Impacts are based on current design and subject to change.

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 Staff Jennings Property. Access from  River View Cemetery Approximately OR 43 would be modified. A roadway 3.6 acres would be acquired. Access from would diverge from the new River View OR 43 would be modified, with possible Cemetery access and would pass under OR proximity issues related to the 43 south of the roundabout to provide Superintendent’s House. Parking and access to the Staff Jennings property and circulation to the Superintendent’s House Powers Marine Park. The upper parking lot would also be modified; 8 out of 12 parking and sign would be displaced. One spaces would be displaced. After boathouse (a boat garage) and related construction, these parking spaces would docks located beneath the proposed be restored on-site in the immediate bike/pedestrian bridge could potentially vicinity of the Superintendent’s House. require relocation. Alternative B  Parks and Recreational Facilities. Direct Impacts. Alternative B would Approximately 4.3 acres would be acquired permanently acquire approximately 10.5 acres (see Section 3.9, Parks and Recreation, for of land area. Displacements that would occur more information). The piers for the under Alternative B, including those common bicycle/pedestrian bridge would to all Build alternatives, are shown on permanently displace approximately Figure 3.3-4. 10 parking spaces in the Sellwood Riverfront Park parking lot.

FIGURE 3.3-3 Alternative A Right-Of-Way Impacts

3-62 Sellwood Bridge Project F i na l Environmental Impact Statement R i g ht - o f - Way and Relocation Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

Acquired residences:  Sellwood Harbor. There would be the  One condominium in River Park. One loss of some common-element landscaping, residential condominium unit in this 49-unit fencing, and site improvements, potentially condominium complex would be impacting the remaining residential units demolished and displaced. and/or common area. Other direct impacts:  Staff Jennings Property. Access from  River Park. The acquisition of one OR 43 would be modified. A roadway residential condominium unit in this 49-unit would diverge from the new River View condominium complex would necessitate Cemetery access and would pass under the reconstruction of the remaining OR 43 south of the roundabout to provide adjacent condominium unit and common access to the Staff Jennings property and areas. In addition, 14 parking spaces under Powers Marine Park. The upper parking lot the existing bridge would be displaced and sign would be displaced. during construction. There is adequate  Parks and Recreational Facilities. parking in the area to accommodate the Approximately 3.9 acres would be acquired displacement of these parking spaces during (see Section 3.9, Parks and Recreation, for construction. After construction, these more information). parking spaces would be restored either at or near their existing location.  River View Cemetery. Approximately 3.6 acres would be acquired. Access from OR 43 would be modified, with possible FIGURE 3.3-4 proximity issues related to the Alternative B Right-of-Way Impacts Superintendent’s House. Parking and

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circulation to the Superintendent’s House Alternative C would also be modified; 8 out of 12 parking Direct Impacts. Alternative C would spaces would be displaced. After permanently acquire approximately 10.8 acres construction, these parking spaces would of land area. Displacements that would occur be restored on-site in the immediate under Alternative C, including those common vicinity of the Superintendent’s House. to all Build alternatives, are shown on Figure 3.3-5. Temporary Detour Bridge Option An additional 0.3 acre would be temporarily Acquired businesses: acquired for approximately 3 years for the  Staff Jennings Property. The entire Staff temporary detour bridge. The temporary Jennings property would be displaced. The acquisition would necessitate the removal of existing boat launch adjacent to the Staff the Riverside Corral (32 employees) and the Jennings property would be closed; portion of Brinsfield Boat Basin north of however, alternative facilities are available SE Tacoma Street. Because Brinsfield Boat at the nearby Willamette Park. Basin is located north and south of SE Tacoma Acquired residences: Street, it is anticipated that Brinsfield Boat  One condominium in River Park. One Basin could continue to operate on a reduced residential condominium unit in this 49-unit level. Upon project completion, the land condominium complex would be acquired for the temporary detour bridge demolished and displaced. would be available for redevelopment.

FIGURE 3.3-5 Alternative C Right-of-Way Impacts

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Other direct impacts: could make locating a future streetcar  Brinsfield Boat Basin. One metal-clad station in the area difficult. storage building and surface parking area would be displaced for the portion of the  River View Cemetery. Approximately business on the south side of SE Tacoma 2.1 acres would be acquired. Access from Street because of the loop from SE Tacoma OR 43 would be eliminated. Access from Street under the bridge via SE Grand SW Taylors Ferry Road would be Avenue. This would reduce the size of this maintained, but the route to the block and, therefore, the amount of land Superintendent’s House would be that could be developed in the future. The circuitous. existing access from SE 6th Avenue would Indirect impacts: be maintained. Because Brinsfield Boat  One boathouse would be displaced. No Basin is located north and south of moorage facilities could currently SE Tacoma Street, it is anticipated that accommodate this floating structure on the Brinsfield Boat Basin could continue to Willamette River, and it likely would operate on a reduced level. require relocation to the Columbia River or Multnomah Channel.  River Park. The acquisition of one residential condominium unit in this 49-unit  The existing boat launch adjacent to the Staff Jennings property would be closed; condominium complex would necessitate however, alternative facilities are available the reconstruction of the remaining at the nearby Willamette Park. adjacent condominium unit and common areas. Fourteen parking spaces under the  The owners of River View Cemetery existing bridge would be displaced during indicate that they would move the funeral construction. There is adequate parking in home business located in the the area to accommodate the displacement Superintendent’s House to another location if access from OR 43 was no of these parking spaces during longer available. construction. After construction, these parking spaces would be restored either at Alternative D or near their existing location. Direct Impacts. Alternative D would permanently acquire approximately 10.7 acres  Sellwood Harbor. There would be the of land area. Displacements that would occur loss of some common element landscaping, under Alternative D, including those common fencing, and site improvements, potentially to all alternatives, are depicted on Figure 3.3-6. impacting the remaining residential units and/or common area. Acquired residences:  Sellwood Harbor. Four condominium  Parks and Recreational Facilities. units in this 39-unit condominium complex Approximately 4.3 acres would be acquired would be demolished and displaced. (see Section 3.9, Parks and Recreation, for more information).  River Park. One residential condominium unit in this 49-unit condominium complex  Willamette Shoreline Trolley and would be demolished and displaced. Future Streetcar. The curvature of the tracks of the Alternative C realignment Other direct impacts: would reduce the operating speed and  River Park. The acquisition of one residential condominium unit in this 49-unit condominium complex would necessitate

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FIGURE 3.3-6 Alternative D Right-of-Way Impacts

the reconstruction of the remaining site improvements, potentially impacting adjacent condominium unit and common the remaining residential units and/or areas. Fourteen parking spaces under the common area. existing bridge would be displaced during construction. There is adequate parking in  Staff Jennings Property. Access from the area to accommodate the displacement OR 43 would be modified. A roadway of these parking spaces during would diverge from the new River View construction. After construction, these Cemetery access and would pass under OR parking spaces would be restored either at 43 south of the west-side interchange to or near their existing location. provide access to the Staff Jennings property and Powers Marine Park. The upper parking lot and sign would be displaced.  Sellwood Harbor. The acquisition of four condominium units in this 39-unit  Parks and Recreational Facilities. condominium complex would necessitate Approximately 3.7 acres would be acquired the reconstruction of the remaining (see Section 3.9, Parks and Recreation, for adjacent condominium units and common more information). areas. There would be the loss of some common-element landscaping, fencing, and  River View Cemetery. Approximately 3.6 acres would be acquired. Access from

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OR 43 would be modified, with possible bridge structure. Access from OR 43 proximity issues related to the would be modified. A roadway would Superintendent’s House. Parking and diverge from the new River View Cemetery circulation to the Superintendent’s House access point and would pass under OR 43, would also be modified; 8 out of 12 parking south of the west-side interchange, to spaces would be displaced. After provide access to the Staff Jennings construction, these parking spaces would property and Powers Marine Park. Land be restored on-site in the immediate area available on the Staff Jennings property vicinity of the Superintendent’s House. would be reduced. The upper parking lot and sign would be displaced. Alternative E Direct Impacts. Alternative E would  Brinsfield Boat Basin. The portion of permanently acquire approximately 11.6 acres Brinsfield Boat Basin north of SE Tacoma of land area. Displacements that would occur Street would be displaced. Because under Alternative E, including those common Brinsfield Boat Basin is located north and to all Build alternatives, are shown on south of SE Tacoma Street, it is anticipated Figure 3.3-7. that Brinsfield Boat Basin could continue to operate on a reduced level. Acquired businesses:  Thirty-seven businesses in the River  Parks and Recreational Facilities. Park Center. The three-story Approximately 3.8 acres would be acquired professional office building of nearly 50,000 (see Section 3.9, Parks and Recreation, for square feet of rentable area would be more information). demolished and displaced. The viability of all 37 businesses (186 employees total) is  River View Cemetery. Approximately not dependent on their specific locations. 3.4 acres would be acquired. Access from OR 43 would be modified, with possible  Two vacant office spaces in Grand proximity issues related to the Place. The vacant complex that includes Superintendent’s House. Parking and the potential for two or more office spaces circulation to the Superintendent’s House would be demolished and displaced. would also be modified; 8 out of 12 parking Acquired residences: spaces would be displaced. After  Six residential units in Grand Place. construction, these parking spaces would This mixed-use office/condominium be restored in the immediate vicinity of the complex would be demolished and Superintendent’s House. displaced. The complex includes six Mitigation. The River Park Center is typical of residential units. available office lease inventory in the Other direct impacts: metropolitan area. Therefore, a reasonable  Staff Jennings Property. The new bridge inventory of replacement business units is also would cross over the Staff Jennings available, and alternative lease space is available property and would include the north within the parameters of the affected rental paved parking and boat storage area. The unit. primary buildings would remain intact, as would the floating structures. It is assumed that easement reservations would allow continued surface use beneath the new

Sellwood Bridge Project F i na l Environmental Impact Statement 3-67 R i g ht - o f - Way and Relocation Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

Other direct impacts: Alternative D Refined  Sellwood Harbor. The acquisition of four (Preferred Alternative) condominium units in this 39-unit Direct Impacts. Alternative D Refined would condominium complex would necessitate permanently acquire approximately 8.9 acres of the reconstruction of the remaining land area. Displacements that would occur adjacent condominium units and common under Alternative D Refined, including those areas. Some common-element landscaping, common to all Build alternatives, are depicted fencing, and site improvements would be on Figure 3.3-8. lost, potentially impacting the remaining residential units and/or common areas. Acquired residences:  Sellwood Harbor. Four condominium  River Park. The acquisition of one units in this 39-unit condominium complex residential condominium unit in this 49-unit would be demolished and displaced. condominium complex would necessitate the reconstruction of the remaining  River Park. One residential condominium adjacent condominium unit and common unit in this 49-unit condominium complex areas. Fourteen parking spaces under the would be demolished and displaced. existing bridge would be displaced during construction. There is adequate parking in the area to accommodate the displacement

FIGURE 3.3-7 Alternative E Right-of-Way Impacts

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of these parking spaces during  River View Cemetery. Approximately construction. After construction, these 4.0 acres would be acquired. Access from parking spaces would be restored either at OR 43 would be modified. Parking and or near their existing location. circulation to the Superintendent’s House would also be modified; 8 out of 12 parking  Staff Jennings Property. Access from spaces would be displaced. After OR 43 would be modified. A roadway construction, these parking spaces would would diverge from the west-side signalized be restored on-site in the immediate intersection. It would pass under OR 43 vicinity of the Superintendent’s House. south of the west-side interchange, providing access to the Staff Jennings property and Powers Marine Park. The upper parking lot and sign would be displaced.

 Parks and Recreational Facilities. Approximately 1.4 acres would be acquired and converted to transportation right-of- way (see Section 3.9, Parks and Recreation, for more information).

FIGURE 3.3-8 Preferred Alternative (Alternative D Refined) Right-of-Way Impacts

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3.3.4 Summary of Alternatives by Differentiating Right-of- Way Impact

TABLE 3.3-2 Summary of Alternatives by Differentiating Right-of-Way Impact

No B/TD Impact Type Build A B B C D E D Refined Total Right-of-Way 0 10.5 10.5 10.8 10.8 10.7 11.6 8.9 Acquired (acres) Park and Recreational 0 4.3 3.9 3.9 4.3 3.7 3.8 1.4 Facilities (acres) River View Cemetery 0 3.6 3.6 3.6 2.1 3.6 3.4 4.0 (acres) Residential Properties 0 1 1 1 1 5 6 5 Displaced Business Units Displaced 0 9 9 10 10 9 48 9 B/TDB = Alternative B with temporary detour bridge

3-70 Sellwood Bridge Project F i na l Environmental Impact Statement U t i l i t i e s Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

Utilities Summary 3.4 Utilities Temporary utility impacts would occur 3.4.1 Affected Environment during construction from the relocation and Relocation of utilities in urban areas can be a rerouting of utilities. All impacted utilities would be replaced, reconstructed, or major project expense. Several utilities exist realigned. Utility relocation costs of the Build within the study area. The following companies alternatives would range between $2.87 and or agencies have utilities in the study area: $4.60 million.

 NW Natural  Comcast Cable Communication Management,  City of Portland Bureau of Water Works LLC

 Portland Bureau of Environmental Services  Qwest Local Network (BES)  Electric Lightwave  Portland General Electric (PGE)

 City of Portland Signals and Street Lighting Division

FIGURE 3.4-1 Existing Utilities

Sellwood Bridge Project F i na l Environmental Impact Statement 3-71 U t i l i t i e s C hapter 3. Existing Environment, Anticipated Impacts, and Mitigation

Existing utilities of note within the study area, replaced. Utility relocation is estimated at which are illustrated on Figure 3.4-1, include: $140,000.

 There are several gas mains along the street 3.4.3 Build Alternatives network on the east bank, including smaller (1- to 2-inch) service lines serving properties Environmental off the gas mains. Limited gas service exists Consequences on the west bank. Impacts and Mitigation Common to  Large sections of water mains on the east and All Build Alternatives west banks of the Willamette River, and one Direct Impacts. Most of the utilities on the 30-inch main on the bottom of the river, west bank of the Willamette River would be north of the existing Sellwood Bridge impacted by all Build alternatives. On the east alignment. West of the river, two large water side, the intersection of SE Tacoma Street and lines (16 to 24 inches and 36 inches) are parallel to OR 43 north and south of the SE 6th Avenue would be the area most existing Sellwood Bridge interchange. East of commonly impacted. All utilities attached to the the river, there is a 36-inch water main under existing Sellwood Bridge would be removed SE Spokane Street. Smaller service lines during construction. Temporary utility impacts measuring less than 10 inches complete the would occur during construction from the distribution network, supplying water to area relocation and rerouting of utilities. homes and businesses. Indirect Impacts. No indirect impacts have  A sanitary sewer network along SE Spokane been identified. Street, SE Tacoma Street, SE Tenino Street, and SE Grand Avenue. Mitigation. Multnomah County would replace, reconstruct, or realign impacted utilities. The  A large network of transmission and extent of the impacts would be determined when distribution lines, such as power poles, street more detailed design becomes available. lights, and large transmission towers and poles. Alternative-specific Impacts  A fiber-optic communications line running Alternative A north-south on OR 43 on the west bank of Most of the existing west-bank utilities are the Willamette River. centered on the existing alignment of OR 43.  Aerial fiber-optic lines running north-south Therefore, long stretches of these pipes and lines on OR 43 as far south as the Sellwood are included in the cost estimates as relocations. Bridge, which then go underground to the On the east side, impacts would primarily be east through the existing interchange and limited to SE Tacoma Street. Utility relocation is attach to the Sellwood Bridge to cross the estimated at $2.87 million. Willamette River. On the east bank, the lines become aerial again and follow SE Spokane Alternative B Street. Most of the existing west-bank utilities are centered on the existing alignment of OR 43. 3.4.2 No Build Alternative Therefore, long stretches of these pipes and lines Environmental are included in the cost estimates as relocations. Consequences On the east side, impacts would primarily be limited to SE Tacoma Street. Utility relocation is The No Build Alternative would impact utilities estimated at $3.20 million. on the west bridge approach that would be

3-72 Sellwood Bridge Project F i na l Environmental Impact Statement U t i l i t i e s Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

Temporary Detour Bridge Option Alternative D Including the temporary detour bridge in Most of the existing west-bank utilities are Alternative B would impact most of the utilities centered on the existing alignment of OR 43. along SE Spokane Street. These utilities include a Therefore, long stretches of these pipes and lines large gas main and the 30-inch water main under are included in the cost estimates as relocations. SE Spokane Street. Additionally, the temporary On the east side, impacts would primarily be detour bridge alignment would coincide with a limited to SE Tacoma Street. Utility relocation is 30-inch water main as it crosses the river. This estimated at $3.28 million. main would be costly to replace because of its location and the environmental implications Alternative E Alternative E would cross multiple utility lines on related to relocating a pipe buried in the river SE Spokane Street. The impact would be less bottom. Utility relocation is estimated at severe than Alternative B with the temporary $1.40 million just for the temporary detour bridge because Alternative E would cross detour bridge. these lines at a steep angle, as opposed to Alternative C running directly parallel with them. Though the Most of the existing west-bank utilities are bridge alignment for Alternative E would not centered on the existing alignment of OR 43. match the existing alignment, utilities along SE Therefore, long stretches of these pipes and lines Tacoma Street would still be impacted because are included in the cost estimates as relocations. the existing bridge would be removed. Utility On the east side, impacts would primarily be relocation is estimated at $3.61 million. limited to SE Tacoma Street. Variations in utility impacts for Alternative C compared to those Alternative D Refined with Alternatives A, B (without the temporary (Preferred Alternative) Most of the existing west-bank utilities are detour bridge), D, and D Refined can be centered on the existing alignment of OR 43. attributed to the design loop access to SE Grand Therefore, long stretches of these pipes and lines Avenue and SE Oaks Park Way from the are included in the cost estimates as relocations SE Tacoma Street/SE 6th Avenue intersection. A for Alternative D Refined. On the east side, series of sanitary sewer pipes would need to be impacts would primarily be limited to SE Tacoma relocated because the loop access would dive to Street. Utility relocation is estimated at underpass the Sellwood Bridge structure. Other $3.28 million. Build alternatives would not have as large an impact on east-bank sanitary sewer pipes. Utility 3.4.4 Summary of Alternatives by relocation is estimated at $3.19 million. Differentiating Utilities Impact

TABLE 3.4-1 Summary of Alternatives by Differentiating Utilities Impact No D Impact Type Build A B B/TDB C D E Refined Utility Relocation Cost (millions) $0.14 $2.87 $3.20 $4.60 $3.19 $3.28 $3.61 $3.28 B/TDB = Alternative B with temporary detour bridge

Sellwood Bridge Project F i na l Environmental Impact Statement 3-73 Land Use Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

Land Use Summary 3.5 Land Use All Build alternatives would require a Greenway and Environmental overlay zone 3.5.1 Affected Environment permits; otherwise, Build alternatives are Land use on the east side of the Willamette River generally in compliance with applicable land in the study area is a mix of single- and multi- use plans. Exceptions are the three-lane family residences along with small neighborhood bridge cross-section in Alternative C (not consistent with the Regional Transportation commercial stores, smaller-scale office uses, Plan) and the alignment of Alternative E (not condominium developments along the riverfront, consistent with the view corridor and recreational parks and open spaces. Land use preservation in the Willamette Greenway on the west side of the Willamette River in the Plan). study area is mostly parks and protected open None of the Build alternatives is anticipated space; this protected open space includes the to have an adverse effect on the amount of land-use supply for any zoning or approximately 265-acre River View Cemetery, comprehensive plan land-use category. which forms the western boundary of the study area. A notable exception is the Staff Jennings plan for the City of Portland. This plan guides the property, which is located just north of the future growth and development of the city. An bridgehead. The existing conditions figure in element of the Comprehensive Plan is the Chapter 1 (Figure 1.2-2) illustrates existing land Comprehensive Plan Map (City of Portland, 2007b), uses. Generalized land uses are shown on which identifies desired land uses for the City of Figure 3.5-1. Portland.

Land-use Plans, Policies, and Title 33 of Portland’s Code and Charter governs Regulations planning and zoning. Title 33 (the zoning code) is the major implementation tool of the goals and Adopted land-use plans, policies, and zoning policies of the Comprehensive Plan. The zoning regulations serve as management strategies that code must be consistent with the Comprehensive enable communities to function effectively and Plan Map designations. Portland’s zoning code grow efficiently and prosperously. An integral includes both base zoning districts and overlay part of these management strategies is the zoning districts. All land in the city has a base transportation system and how it functions to zone, which means it has been designated for serve desired land uses. commercial, residential, open space, or industrial The City of Portland Comprehensive Plan (City of land uses. Overlay zones, which are present in Portland, 2006) is the current adopted land-use areas of special value to the city, include

A comprehensive plan is a generalized, coordinated land-use map and policy statement that shows how the land should be developed for residential, commercial, industrial, and public uses. It interrelates all functional and natural systems and activities relating to the use of lands, including, but not limited to, sewer and water systems, transportation systems, educational facilities, recreational facilities, and management programs for natural resources, air quality, and water quality. The City of Portland Comprehensive Plan (City of Portland, 2006) includes a set of goals, policies, and objectives that apply to the entire city. Similar goals, policies, and objectives in neighborhood and community plans that apply to only parts of the city are also part of the Comprehensive Plan. The plan includes a list of significant public works projects and a set of

Comprehensive Plans mapped features. These features include land-use designations, street classifications, the city limits, and the urban service boundary.

3-74 Sellwood Bridge Project Final Environmental Impact Statement Land Use Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation additional land-use regulations. Figure 3.5-2 framework for local land use and are applicable illustrates the location of Greenway and to this project. Any improvements to the Environmental overlay zones. Table 3.5-1 Sellwood Bridge under the No Build Alternative provides the zoning districts (base and overlay) in or Build alternatives would need to be consistent the study area. with these regulations, plans, and guidance documents. The official zoning maps in the study area were compared to the Comprehensive Plan Map (City of Three of these plans have particular relevance for Portland, 2007b). There are no deviations in the Sellwood Bridge project: South Willamette general land use in the study area between the River Crossing Study (Metro, 1999), Regional zoning map and the Comprehensive Plan Map. The Transportation Plan (RTP; Metro, 2004), and Sellwood Bridge project’s roadway and bridge Tacoma Main Street Plan (City of Portland, 2001). improvements are allowable uses in all base zones In May 1999, Metro made recommendations for present in the study area. However, there are the South Willamette River Crossing Study, which regulations for construction or development included the Sellwood Bridge. The study, initiated activity in the Greenway and Environmental by Metro’s Joint Policy Advisory Committee on overlay zones. Transportation, identified needed improvements Table 3.5-2 lists the other land-use regulations, for cars, transit, bikes, and pedestrian traffic plans, and guidance documents that establish the crossing the Willamette River between southeast

FIGURE 3.5-1 Generalized Land Uses

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Portland and Oregon City. One study Moreland neighborhood. A basic assumption recommendation was to preserve the existing carried into the planning process (according to Sellwood Bridge or replace it as a two-lane bridge recommendations from the South Willamette River with better service for bicyclists and pedestrians. Crossing Study [Metro, 1999]) was that providing adequate regional traffic capacity in the Sellwood Metro’s 2004 RTP is a 20-year blueprint for the Bridge/SE Tacoma Street travelshed is not the Portland metropolitan region’s transportation responsibility of SE Tacoma Street. The plan system and an adopted “Functional Plan” supports “regional efforts to carry out the integrated into the Regional Framework Plan recommendations of the South Willamette River (Metro, 2005). The 2004 RTP includes the South Crossing Study that reduce travel demand on the Willamette River Crossing Study (Metro, 1999) Sellwood Bridge.” Action items to meet this recommendation for the Sellwood Bridge. The recommendation include mitigating traffic growth project is listed as Project 1012 on the 2004 RTP on SE Tacoma Street, increasing transit services, list of financially constrained projects for the RTP increasing motor vehicle capacity on appropriate program years 2004 to 2009. The RTP is regional facilities “in order to direct traffic away currently being updated, and its adoption is from areas of conflict with land use goals,” and anticipated in June 2010. supporting “improvements to the west end of the Completed in 2001, the City of Portland’s Sellwood Bridge that mitigate congestion Tacoma Main Street Plan was developed to impacts.” implement the vision of a multi-modal, neighborhood-oriented street in the Sellwood-

FIGURE 3.5-2 Greenway and Environmental Overlay Zones

3-76 Sellwood Bridge Project Final Environmental Impact Statement Land Use Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

3.5.2 No Build Alternative TABLE 3.5-1 Environmental Zoning Districts (Base Zones and Overlay Zones) Consequences in the Study Area Symbol Zoning District Name Under the No Build Alternative, existing travel patterns in the project area would be maintained Base Zones and no land would be acquired. The Sellwood Commercial (COM on Figure 3.5-1) neighborhood would likely retain its appeal for CG General Commercial residential land uses. CM Mixed Commercial/Residential The No Build Alternative would not be CS Storefront Commercial consistent with either the City of Portland General Employment (GE on Figure 3.5-1) Transportation System Plan (2004, updated in 2007) EG2 General Employment 2 or the Metro Regional Transportation Plan (2004), EX2 Central Employment both of which recommend rehabilitating or Open Space (OS on Figure 3.5-1) replacing the existing Sellwood Bridge. OS Open Space 3.5.3 Build Alternatives Multi-Dwelling Residential (MDR on Figure 3.5-1) Environmental R1 Residential 1,000 Consequences R2 Residential 2,000 RH High-Density Residential Impacts and Mitigation Common to Single-Family Residential (SFR on Figure 3.5-1) All Build Alternatives R2.5 Residential 2,500 Direct Impacts. The Build alternatives would: R5 Residential 5,000 • Convert existing and future land uses to R10 Residential 10,000 transportation right-of-way. RF Residential Farm/Forest • Affect commercial, residential, and open Overlay Zones space lands, which lie within the Willamette Greenway Overlay Zones (Figure 3.5-2) Greenway, Environmental, Design, and Scenic overlay zones. g River General q River Water Quality • Have no adverse impact on the land use in r River Recreational existing base zones, the existing land-use supply, or the future land-use supply of any Environmental Overlay Zones (Figure 3.5-2) respective zoning or Comprehensive Plan (City c Environmental Conservation of Portland, 2006) land-use category. p Environmental Preservation • Require Type II Greenway and Environmental Other Overlay Zones Permits from the City of Portland because d Design the Build alternative improvements are a Alternative Design Density located within the Greenway and Environmental overlay zones. Current s Scenic alternative designs are not detailed enough to Source: City of Portland Code, Title 33. determine the outcome of these permitting processes.

Sellwood Bridge Project Final Environmental Impact Statement 3-77 Land Use Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

Indirect Impacts. The Build alternatives would Depending on the zoning at the site and the uses or developments that are have similar indirect impacts, including the proposed, a project may or may not following: require a land-use review. Land-use reviews are required when the zoning • Any transportation improvement has the code "triggers" a review for a specific potential to increase the market appeal of the use or development project. local area, thereby increasing demand for Regulations directing a proposal to a new commercial spaces or residences. In land-use review can be found in the turn, this increased demand could influence base zones, overlay zones, plan land-use (zoning) decision-making to allow districts, and other sections of the more intense uses. In the Sellwood area, a zoning code, as well as within substantial amount of development can occur conditions of approval from past land- use approvals at the site. Most review under current zoning that would be "triggers" are located in the zoning consistent with adopted plans and policies. code chapter that addresses a This intensification of existing land uses particular topic. There are five types of would most likely occur along the SE Tacoma land-use reviews: Types I, II, IIx, III, and Street and SE 13th Avenue corridors. IV. The assignment of a particular procedure type (I through IV) is usually • More people may choose to live in the area done in the City of Portland Zoning as a result of improved transit, bicyclist, and City of Portland Land-Use Reviews Code chapter that establishes the pedestrian conditions, thereby prompting the review. Type I, II, and IIx reviews are construction of new living units. made administratively by Bureau of Development Services staff. Type III • Transit-oriented land-use development in the and IV reviews involve a public hearing Sellwood and OR 43 corridor areas could before the decision is made. increase as a result of the resumption of bus service across the bridge. • Require an Oregon Department of Land Conservation and Development Goal 15 • A positive effect on existing neighborhood (Willamette River Greenway) Exception. commercial land uses in Sellwood could result from increased “walk-by” traffic. The • Require a Map Amendment to the City of increase in pedestrian activity would be Portland Comprehensive Plan (City of Portland, expected to result from a population increase 2006) because the project would require fill associated with denser land-use development within the greenway setback. and an increase in people walking to and from bus stops along SE Tacoma Street associated • Require a Type II Historic Design Review with the resumption of transit service. from the City of Portland. Current alternative designs are not detailed enough to determine the outcome of this review.

• Require an access deviation from ODOT; Oregon Administrative Rule (OAR) Chapter 734, Division 51, access management spacing standards, would not be met on OR 43 north and south of the Sellwood Bridge.

3-78 Sellwood Bridge Project Final Environmental Impact Statement Land Use Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

TABLE 3.5-2 Applicable Land-Use Regulations, Plans, and Guidance Documents City of Portland Bicycle Master Plan Southwest Community Plan City of Portland Comprehensive Plan Tacoma Main Street Plan Corbett-Terwilliger-Lair Hill Policy Plan Transportation System Plan Freight Master Plan Willamette Greenway Plan and River Plan Parks 2020 Vision Willamette River Bridges Accessibility Project Pedestrian Master Plan Willamette River Concept Plan Scenic Resources Protection Plan Zoning Code Sellwood-Moreland Neighborhood Plan Metro 2040 Growth Plan Regional Transportation Plan Regional Framework Plan South Willamette River Crossing Study Multnomah County Bicycle Master Plan ODOT Oregon Transportation Plan Oregon Highway Plan State of Oregon Statewide Planning Goals

• Improved truck access would allow more actions to offset impacts to public parks and trails efficient servicing of existing residential and in the study area in coordination with Portland commercial land uses. Although the increased Parks & Recreation, Portland Bureau of number of delivery trucks across the bridge Environmental Services, and Metro. (See Section could also have a negative effect on 3.9, Parks and Recreation, and Final Section 4(f) residential and commercial land uses by Evaluation for details.) degrading the pedestrian environment, this route is not expected to become an Alternative-specific Impacts and attractive through route for very large cargo Mitigation trucks. The increased truck usage on the Alternative A bridge is expected to support delivery of Table 3.5-3 summarizes land-use impacts for goods and services to the local area. Alternative A. It is anticipated that Alternative A would be in compliance with applicable policies, Mitigation. The Build alternatives would require goals, and objectives of the relevant land-use real property purchase for construction and regulations, plans, and guidance documents listed access management. Existing private property in Table 3.5-2. would be converted to transportation use, which would necessitate compensation and relocation Alternative B assistance to affected property owners, as Table 3.5-3 summarizes land-use impacts for described in Section 3.3, Right-of-Way and Alternative B. It is anticipated that Alternative B Relocation. Access to all private properties would (with and without the temporary detour bridge) be provided during and following construction. would be in compliance with applicable policies, Multnomah County would implement mitigation goals, and objectives of the relevant land-use

Sellwood Bridge Project Final Environmental Impact Statement 3-79 Land Use Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation regulations, plans, and guidance documents listed of Portland, 1987) identifies a “View Corridor” in Table 3.5-2. westward on SE Spokane Street, toward the Willamette River. The plan states this view must Alternative C be preserved. Alternative E would be inconsistent Table 3.5-3 summarizes land-use impacts for with the plan because the bridge structure would Alternative C. Alternative C would be cross SE Spokane Street, impacting this view inconsistent with the South Willamette River corridor. Crossing Study (Metro, 1999) and the RTP because the bridge would have three vehicular travel It is anticipated that Alternative E would be in lanes, rather than the two lanes specified in these compliance with other applicable policies, goals, documents. and objectives of the relevant land-use regulations, plans, and guidance documents listed It is anticipated that Alternative C would be in in Table 3.5-2. compliance with other applicable policies, goals, and objectives of the relevant land-use Alternative D Refined regulations, plans, and guidance documents listed (Preferred Alternative) in Table 3.5-2. Table 3.5-3 summarizes land-use impacts for Alternative D Refined. It is anticipated that Alternative D Alternative D Refined would be in compliance Table 3.5-3 summarizes land-use impacts for with applicable policies, goals, and objectives of Alternative D. It is anticipated that Alternative D the relevant land-use regulations, plans, and would be in compliance with applicable policies, guidance documents listed in Table 3.5-2. goals, and objectives of the relevant land-use regulations, plans, and guidance documents listed 3.5.4 Summary of Alternatives by in Table 3.5-2. Differentiating Land-use Alternative E Impact Table 3.5-3 summarizes land-use impacts for Alternative E. The Willamette Greenway Plan (City

3-80 Sellwood Bridge Project Final Environmental Impact Statement Land Use Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

TABLE 3.5-3 Summary of Alternatives by Differentiating Land-use Impact Impacts on Land-use Zoning Types D Refined No Build A B and B/TDB C D E (Preferred Alt.) Impact % of Impact % of Impact % of Impact % of Impact % of Impact % of Zone Impact (acres) Supply a (acres) Supply a (acres) Supply a (acres) Supply a (acres) Supply a (acres) Supply a Open Space (OS) 0 7.9 2.3 8.3 2.4 6.5 1.9 8.2 2.4 7.1 2.1 6.9 2.0 Commercial (CG, CM, CS) 0 2.5 3.0 2.1b 2.6 b 3.9 4.7 1.8 2.2 3.9 4.8 1.4 1.7 Multi-Dwelling Residential (RH) 0 0.3 <1 0.4 <1 0.4 <1 0.6 <1 0 <1 0.6 <1 Environmental Overlay (c, p) 0 4.3 NA 4.3 NA 3.9 NA 4.4 NA 4.9 NA 2.8 NA Greenway Overlay (g, q, r) 0 7.0 NA 6.9 NA 8.6 NA 7.0 NA 7.4 NA 4.9 NA Compliance with Applicable Land-use Documents Compliant Compliant Compliant Not compliant Compliant Not compliant Compliant pending pending pending with South pending with Greenway and Greenway and Greenway and Willamette River Greenway and Willamette Environmental Environmental Environmental Crossing Study and Environmental Greenway Plan; review/permitting review/ review/ Regional review/ compliant permitting permitting Transportation Plan; permitting pending compliant pending Greenway and Greenway and Environmental Environmental review/ review/permitting permitting a In the Sellwood Bridge project area of potential effect. b 2.1 acres would be impacted under Alternative B with the temporary detour bridge, which would be 2.6 percent of commercial land supply in the Sellwood Bridge project area of potential effect. B/TDB = Alternative B with Temporary Detour Bridge NA = not applicable (percent of zone type relates to the finite amount of land available for particular types of development; overlay zones provide protection for development within the zone)

Sellwood Bridge Project Final Environmental Impact Statement 3-81 Economic Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

3.6 Economic Economic Summary During construction, adverse economic 3.6.1 Affected Environment impacts of the Build alternatives would The economic analysis focuses on a study area include residential and business that encompasses the few businesses on the west displacements resulting from right-of-way acquisition and construction-related delays, side of the bridge and the core of the Sellwood detours, dust, and noise. If no river crossing commercial district on the east side. During fiscal were provided during construction, those year 2004-2005, approximately 93 businesses who would normally use the bridge would with 859 employees were located in the incur extensive travel time and vehicle economic analysis study area. operation costs, and economic activity at Sellwood businesses would be reduced. After On the west side of the study area, shown on construction, the area would expect economic benefits because the structural Figure 3.6-1, there are two businesses: a funeral integrity of the bridge would ensure its long- home in the Superintendent’s House at River term operation and improved accessibility View Cemetery and the Staff Jennings property. for trucks, buses, pedestrians, and bicyclists. Access for the entrance and parking for River View Cemetery, including the funeral home, is Willamette River, provided boat sales, servicing, through an intersection with OR 43, south of the and fueling, but closed in March 2010. There is existing bridge. The Staff Jennings property, limited commercial development along OR 43 located just north of the bridge and on the until the intersection with SW Taylors Ferry Road to the north and Lake Oswego to the FIGURE 3.6-1 south, features that are outside the study area. West-side Economic Analysis Study Area The eastern portion of the study area is illustrated on Figure 3.6-2.

SE Tacoma Street is the primary east-west local and regional through-fare in this area. This roadway is primarily lined with commercial properties, most of which are located at and near the major intersections (at SE 13th Avenue and SE 17th Avenue). Heavy rush-hour traffic passes through the commercial district on SE Tacoma Street in the morning traveling westbound (toward the bridge) and in the afternoon traveling eastbound (from the bridge). Currently, about 30,000 vehicles cross the Sellwood Bridge each weekday. The majority (52 percent) of these trips are between Clackamas County and Portland; Sellwood is neither the origin nor the destination

for those trips.

3-82 Sellwood Bridge Project Final Environmental Impact Statement Economic Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

The primary north-south through-fares are services because they are passing by on trips to SE Milwaukie Avenue, SE 13th Avenue, and other locations (“pass-by” businesses) and those SE 17th Avenue. Coffee shops, restaurants, and whose customers specifically plan trips to their taverns line these commercial streets and serve locations (“destination” businesses). Because as neighborhood gathering places, as well as SE Tacoma Street is a regional commuting route dining destinations for visitors from outside the for so many people, and these commuting people neighborhood. An established regional antique pass by businesses along SE Tacoma Street with district is concentrated on SE 13th Avenue. great frequency, distinguishing among these Home furnishing stores, boutiques, and a business types is difficult. It is likely that many sportswear factory outlet also serve local patrons of businesses in the Sellwood area residents and visitors. The only grocery store in originally visited the businesses because they the study area is located on SE Tacoma Street were passing by, but later began to plan stops at near SE 13th Avenue. These businesses serve them. Regardless of the category of shoppers needs of nearby residents on the east and west they attract, both types of businesses in this area sides of the Willamette River; customers from rely on accessibility from SE Tacoma Street for outside the area on both sides of the river who nearly all customers from the west side of the have targeted particular businesses for shopping river and for all customers who are using the or dining; and pass-by customers who use the businesses as a convenience on their trips Sellwood Bridge en route to destinations outside through the area. Visibility and accessibility are Sellwood. important factors in maintenance of customer bases. In transportation studies, businesses are typically designated in two categories—those whose customers primarily take advantage of their

FIGURE 3.6-2 East-side Economic Analysis Study Area

Sellwood Bridge Project Final Environmental Impact Statement 3-83 Economic Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

visible from SE Tacoma Street but within one 3.6.2 No Build Alternative block north or south and seven blocks north on Environmental SE 13th Avenue; and businesses located between Consequences one and two blocks north or south of SE Tacoma The bridge would be closed to bicycle, Street. Businesses visible and immediately pedestrian, and motorized vehicular traffic for 6 accessible from SE Tacoma Street were expected to 8 months for maintenance activities. This to suffer the greatest losses. Within each tier, closure would create out-of-direction travel for ranges of the income loss to owners and all users of the bridge, increasing travel time. To employees were projected. Combined owner and quantify a portion of these costs, increases in employee income losses associated with bridge travel time and vehicle operating costs were closure for the No Build Alternative are calculated for motorized vehicle users. Costs estimated to range from $1.9 million to were considered for the 2-hour morning and $4.9 million (in 2005 dollars) over the 6- to 2-hour evening peak periods during the closure 8-month period in the economic analysis study period. Operating costs were considered to area (Figures 3.6-1 and 3.6-2). However, owner include fuel, oil, routine maintenance, vehicle and employee income losses associated with depreciation, insurance, taxes, and licenses. These bridge closure would also extend beyond this costs not only would accrue to Sellwood Bridge area along OR 43 north of the Sellwood Bridge users, but also to other travelers on routes with on the west side (in the Johns Landing area), and increased congestion caused by absorption of the in the Sellwood/Moreland neighborhood beyond Sellwood Bridge detour traffic. Total increased the east-side economic analysis study area. (For a travel time and operating costs for motorized more detailed explanation of the impact analysis vehicle users in weekday morning and evening methodology, see the Sellwood Bridge Project peak hours during bridge closure under the No Economic Technical Report [ECONorthwest, 2008; Build Alternative are estimated at $19.1 million in updated 2010].) 2008 dollars. (For more information, see Sellwood Bridge Project Economic Technical Report Although outside the Sellwood commercial [ECONorthwest, 2008; updated 2010].) center, business operations at Oaks Amusement Park, a regional recreation destination, would Closure of the bridge for maintenance activities also be adversely affected by bridge closure would also impact businesses in the Sellwood during construction, especially during summer area because customers traveling to and from months. travel markets served by the Sellwood Bridge in Portland and in Clackamas and Washington The 10-ton weight limit on the Sellwood Bridge counties would be rerouted to other river would remain in place under the No Build crossings. Businesses would lose the visibility to Alternative, which would preclude buses and pass-by customers, as well as accessibility to trucks weighing more than 10 tons from crossing other customers on the west side of the river, the bridge. The weight limit would continue to which could significantly affect those businesses. cause minor freight delivery costs from out-of- The high percentage of traffic that travels through direction travel and a minor loss of customers the area creates a high level of exposure to pass- who would have used transit to access and shop by traffic for these businesses. in the Sellwood area. Significant economic impacts from continued weight restrictions would Loss of business revenue was calculated based on not be expected. the location of businesses in three tiers—those visible from SE Tacoma Street between SE Grand If the bridge were permanently closed for safety Avenue and SE 17th Avenue; businesses not reasons after the 20-year life of the No Build

3-84 Sellwood Bridge Project Final Environmental Impact Statement Economic Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

Alternative, property values in the Sellwood decrease during construction because of neighborhood could decrease because of the lack construction activity noise, debris, and traffic. of nearby river crossings and the likely decline of This condition would be expected to reverse the vibrant neighborhood commercial district itself following project completion. that depends partially on the pass-by commuter traffic. The reduced accessibility of the Sellwood • Operations on the Oregon Pacific Railroad neighborhood would likely reduce the would be suspended for short periods during attractiveness of operating or locating a business construction of the east approaches to the there. These negative impacts to local businesses bridge. Loss of revenue could result. would be expected to occur in the long term. • The Willamette Shoreline Trolley tracks on the west side of the Willamette River would 3.6.3 Build Alternatives be expected to be closed during Environmental construction. Loss of revenue would result if Consequences the bridge closure occurred during the summer months when the trolley was in Impacts and Mitigation Common to service. All Build Alternatives Indirect Impacts. During construction, detours Direct Impacts. Right-of-way acquisition and delays could temporarily decrease residential impacts are discussed in Section 3.3, Right-of- property values and reduce customer activity at Way and Relocation, including business local businesses in the Sellwood neighborhood. relocations and physical impacts to properties After construction, indirect impacts would (such as changes to access and parking). Those include the following: impacts do not account for economic impacts associated with short- and long-term reduction in • Increased freight accessibility on a business income associated with these physical rehabilitated or new bridge would make changes. Direct economic impacts beyond right- deliveries more efficient for local businesses of-way acquisition common to the Build and could reduce delivery shipping costs. alternatives would include: Although the increased number of delivery trucks across the bridge and on SE Tacoma • Displacement of the nine businesses Street could also have a negative effect on (30 employees total) in the Sellwood Building local businesses by degrading the pedestrian would cause loss of business income environment, this route is not expected to associated with reestablishing the businesses become an attractive through route for very in new locations. These businesses are not large cargo trucks. The increased truck usage location-dependent; therefore, impacts are on the bridge is expected to support delivery not expected to be long term. The businesses of goods and services to the local area. would be expected to continue to be viable in new locations. The 30 jobs in this building • Improved safety and mobility for pedestrian are professional-type jobs. The loss of 30 jobs and bicyclist traffic on the new bicyclist and from this specific location could impact pedestrian facilities are expected to greatly service-oriented businesses in Sellwood if the increase bicyclist and pedestrian usage in the displaced businesses did not relocate in the area. More bicyclist and pedestrian use would Sellwood area. likely increase the customer base for local businesses. • Property values of the residential units located just north and south of the east end • Reintroduction of bus service across the of the existing bridge would potentially bridge would increase pedestrian traffic on

Sellwood Bridge Project Final Environmental Impact Statement 3-85 Economic Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

SE Tacoma Street. More pedestrians would • Closure of the bridge during construction potentially benefit business activity in the would impact businesses in the Sellwood Sellwood commercial center. commercial center because customers traveling to and from travel markets served Alternative-specific Impacts by the Sellwood Bridge in Portland and in Alternative A Clackamas and Washington counties would Direct Impacts. In addition to impacts be rerouted to other river crossings. described in Section 3.3, Right-of-Way and Businesses would lose their visibility to Relocation, the following direct impacts would pass-by customers, as well as accessibility to occur under Alternative A: customers on the west side of the river, which could significantly affect those • Displacement of the nine businesses businesses. Combined owner and employee (30 employees total) in the Sellwood Building income losses associated with bridge closure would cause loss of business income for Alternative A are estimated to range from associated with reestablishing the businesses $3.8 million to $9.8 million (in 2005 dollars) in new locations. These businesses are not over the 24-month period in the economic location-dependent; therefore, impacts are analysis study area (Figures 3.6-1 and 3.6-2). not expected to be long term. The businesses However, owner and employee income would be expected to continue to be viable losses associated with bridge closure would in new locations. The 30 jobs in this building also extend beyond this area along OR 43 are professional-type jobs. The loss of 30 jobs north of the Sellwood Bridge on the west from this specific location could impact side (in the Johns Landing area), and in the service-oriented businesses in Sellwood if the Sellwood/Moreland neighborhood beyond displaced businesses did not relocate in the the east-side economic analysis study area. Sellwood area. (For more information, see the Sellwood • The bridge would be closed to bicycle, Bridge Project Economic Technical Report pedestrian, and motorized vehicular traffic for [ECONorthwest, 2008; updated 2010].) 24 months during construction. This closure • Although outside the Sellwood commercial would create out-of-direction travel for all center, business operations at Oaks users of the bridge, causing travel time Amusement Park would be adversely affected increases. The travel delays and associated by bridge closure during construction, operating costs not only would accrue to especially during summer months. Sellwood Bridge users, but also to other travelers on routes with increased congestion • Reconstruction of the displaced River Park caused by absorption of the Sellwood Bridge Condominiums unit and the common area detour traffic. The total increased travel time adjacent to the displaced River Park unit and operating costs for motorized vehicle could decrease property values of other users in weekday morning and evening peak River Park units during construction. hours during bridge closure under Alternative A are estimated at $63.3 million • Displacement of common-area landscaping in 2008 dollars. (For more information, see and site improvements in the River Park and Sellwood Bridge Project Economic Technical Sellwood Harbor condominiums that would Report [ECONorthwest, 2008; updated be incorporated into the right-of-way could 2010].) decrease the property values of the condominiums.

3-86 Sellwood Bridge Project Final Environmental Impact Statement Economic Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

Alternative B • Without the temporary detour bridge option, Direct Impacts. In addition to impacts closure of the bridge during construction described in Section 3.3, Right-of-Way and would impact businesses in the Sellwood area Relocation, the following direct impacts would because customers traveling to and from occur under Alternative B: travel markets served by the Sellwood Bridge in Portland and in Clackamas and Washington • Displacement of the nine businesses counties would be rerouted to other river (30 employees total) in the Sellwood Building crossings. Businesses would lose visibility to would cause loss of business income pass-by customers, as well as access to associated with reestablishing the businesses customers on the west side of the river, in new locations. These businesses are not which could significantly affect those location-dependent; therefore, impacts are businesses. Combined owner and employee not expected to be long term. The businesses income losses associated with bridge closure would be expected to continue to be viable for Alternative B are estimated to range from in new locations. The 30 jobs in this building $3.8 million to $9.8 million (in 2005 dollars) are professional-type jobs. The loss of 30 jobs over the 24-month period in the economic from this specific location could impact analysis study area (Figures 3.6-1 and 3.6-2). service-oriented businesses in Sellwood if the However, owner and employee income displaced businesses did not relocate in the losses associated with bridge closure would Sellwood area. also extend beyond this area along OR 43 • Without construction of the temporary north of the Sellwood Bridge on the west detour bridge, the bridge would be closed to side (in the Johns Landing area), and in the bicycle, pedestrian, and motorized vehicular Sellwood/Moreland neighborhood beyond traffic for 24 months during construction. the east-side economic analysis study area. This closure would create out-of-direction (For more information, see the Sellwood travel for all users of the bridge, causing Bridge Project Economic Technical Report travel time increases. These costs not only [ECONorthwest, 2008; updated 2010].) would accrue to Sellwood Bridge users, but • Displacement of the River Park condominium also to other travelers on routes with unit could increase homeowner association increased congestion caused by absorption of fees for remaining River Park owners because the Sellwood Bridge detour traffic. The total the homeowner association costs would be increased travel time and operating costs for divided among fewer units. motorized vehicle users in weekday morning and evening peak hours during bridge closure • Reconstruction of the displaced River Park under Alternative B are estimated at condominium unit and the common area $63.3 million in 2008 dollars. (For more adjacent to the displaced River Park unit information, see Sellwood Bridge Project could decrease property values of other Economic Technical Report [ECONorthwest, River Park units during construction. 2008; updated 2010].) • Displacement of common-area landscaping • Although outside the Sellwood commercial and site improvements in the River Park and center, business operations at Oaks Sellwood Harbor condominiums that would Amusement Park would be adversely affected be incorporated into the right-of-way could by bridge closure during construction, decrease the property values of the especially during summer months, if no condominiums. temporary detour bridge were provided.

Sellwood Bridge Project Final Environmental Impact Statement 3-87 Economic Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

Temporary Detour Bridge Option associated with reestablishing the businesses The temporary detour bridge would maintain in new locations. These businesses are not access to businesses during construction, location-dependent; therefore, impacts are eliminating impacts associated with increased not expected to be long term. The businesses travel and vehicle operating costs and adverse would be expected to continue to be viable economic impacts to businesses from loss of in new locations. The 30 jobs in this building customer access and visibility. In addition to the are professional-type jobs. The loss of 30 jobs impacts associated with Alternative B described from this specific location could impact previously, and the temporary detour bridge service-oriented businesses in Sellwood if the impacts described in Section 3.3, Right-of-Way displaced businesses did not relocate in the and Relocation, the following direct impacts Sellwood area. would occur: • The bridge would be closed to bicycle, • Displacement of the Riverside Corral pedestrian, and motorized vehicular traffic for business (nine employees) would cause loss 42 months during construction. This closure of business income associated with would create out-of-direction travel for all reestablishing the business in a new location. users of the bridge, causing travel time This business is not location-dependent; increases. The travel delays and associated therefore, impacts are not expected to be operating costs not only would accrue to long term. The business would be expected Sellwood Bridge users, but also to other to continue to be viable in new locations. The travelers on routes with increased congestion nine jobs at Riverside Corral are service- caused by absorption of the Sellwood Bridge oriented jobs. The loss of nine jobs from this detour traffic. The total increased travel time specific location could impact other service- and operating costs for motorized vehicle oriented businesses in Sellwood if the users in weekday morning and evening peak displaced business did not relocate in the hours during bridge closure under Sellwood area. Alternative C are estimated at $110.8 million in 2008 dollars. (For more information, see • The portion of the Brinsfield Boat Basin Sellwood Bridge Project Economic Technical north of SE Tacoma Street displaced during Report [ECONorthwest, 2008; updated construction would temporarily reduce 2010].) business operations, but the portion of the business on the south side of SE Tacoma • Closure of the bridge during construction Street could continue operation. The land on would impact businesses in the Sellwood the north side would be available for commercial center because customers redevelopment following the completion of traveling to and from travel markets served construction. by the Sellwood Bridge in Portland and in Clackamas and Washington counties would Alternative C be rerouted to other river crossings. Direct Impacts. In addition to impacts Businesses would lose their visibility to described in Section 3.3, Right-of-Way and pass-by customers, as well as accessibility to Relocation, the following direct impacts would customers on the west side of the river, occur under Alternative C: which could significantly affect those • Displacement of the nine businesses businesses. Combined owner and employee (30 employees total) in the Sellwood Building income losses associated with bridge closure would cause loss of business income for Alternative C are estimated to range from $6.7 million to $17.0 million (in 2005

3-88 Sellwood Bridge Project Final Environmental Impact Statement Economic Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

dollars) over the 42-month period in the decrease the property values of the economic analysis study area (Figures 3.6-1 condominiums. and 3.6-2). However, owner and employee income losses associated with bridge closure • The curved alignment of the relocated would also extend beyond this area along Willamette Shoreline Trolley tracks under OR 43 north of the Sellwood Bridge on the Alternative C would reduce operating speed west side (in the Johns Landing area), and in and make planned station location difficult. the Sellwood/Moreland neighborhood Alternative D beyond the east-side economic analysis study Direct Impacts. In addition to impacts area. (For more information, see the Sellwood described in Section 3.3, Right-of-Way and Bridge Project Economic Technical Report Relocation, the following direct impacts would [ECONorthwest, 2008; updated 2010].) occur under Alternative D:

• Although outside the Sellwood commercial • Displacement of the nine businesses center, business operations at Oaks (30 employees total) in the Sellwood Building Amusement Park would be adversely affected would cause loss of business income by bridge closure during construction, associated with reestablishing the businesses especially during summer months. in new locations. These businesses are not location-dependent; therefore, impacts are • Access to the River View Cemetery not expected to be long term. The businesses Superintendent’s House (funeral home) would be expected to continue to be viable would be eliminated from OR 43. All clients in new locations. The 30 jobs in this building and employees would access the cemetery are professional-type jobs. The loss of 30 jobs from SW Taylors Ferry Road and drive a from this specific location could impact circuitous route through the cemetery to the service-oriented businesses in Sellwood if the funeral home. This access modification could displaced businesses did not relocate in the impact the operational feasibility of the Sellwood area. business. The River View Cemetery owners have indicated they would relocate the • The staged construction of the new bridge funeral home if access from OR 43 were would allow for river crossing during closed. construction, but traffic access across the bridge would be periodically affected by • Displacement of one residential unit in River interim closures to replace the existing Park could increase homeowner association bridge and construct the new bridge. fees for remaining River Park owners because the homeowner association costs would be • Displacement of one residential unit in River divided among fewer units. Park could increase homeowner association fees for remaining River Park owners because • Reconstruction of the displaced River Park the homeowner association costs would be condominium unit and the common area divided among fewer units. adjacent to the displaced River Park unit could decrease property values of other • Reconstruction of the displaced River Park River Park units during construction. and Sellwood Harbor condominium units and the common area adjacent to the displaced • Displacement of common-area landscaping River Park and Sellwood Harbor and site improvements in the River Park and condominium units could decrease property Sellwood Harbor condominiums that would be incorporated into the right-of-way could

Sellwood Bridge Project Final Environmental Impact Statement 3-89 Economic Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

values of other units in those condominium • Two vacant office spaces in Grand Place communities during construction. would be displaced.

• Displacement of common-area landscaping • The staged construction of the new bridge and site improvements in the River Park and would allow for river crossing during Sellwood Harbor condominiums that would construction. be incorporated into the right-of-way could decrease the property values of the • Despite permanent displacement of the condominiums. portion of Brinsfield Boat Basin north of SE Tacoma Street, it is anticipated that Alternative E Brinsfield Boat Basin could continue to Direct Impacts. In addition to impacts operate on a reduced level. Operations described in Section 3.3, Right-of-Way and would be consolidated on the portion of the Relocation, the following direct impacts would business property south of SE Tacoma Street. occur under Alternative E: Alternative D Refined • Displacement of the nine businesses (Preferred Alternative) (30 employees total) in the Sellwood Building Direct Impacts. In addition to impacts would cause loss of business income described in Section 3.3, Right-of-Way and associated with reestablishing the businesses Relocation, the following direct impacts would in new locations. These businesses are not occur under Alternative D Refined: location-dependent; therefore, impacts are not expected to be long term. The businesses • Displacement of the nine businesses would be expected to continue to be viable (30 employees total) in the Sellwood Building in new locations. The 30 jobs in this building would cause loss of business income are professional-type jobs. The loss of 30 jobs associated with reestablishing the businesses from this specific location could impact in new locations. These businesses are not service-oriented businesses in Sellwood if the location-dependent; therefore, impacts are displaced businesses did not relocate in the not expected to be long term. The businesses Sellwood area. would be expected to continue to be viable in new locations. The 30 jobs in this building • Displacement of the 37 businesses (total of are professional-type jobs. The loss of 30 jobs 186 employees) in the River Park Center from this specific location could impact office building would cause loss of business service-oriented businesses in Sellwood if the income associated with reestablishing the displaced businesses did not relocate in the businesses in new locations. These businesses Sellwood area. are not location-dependent; therefore, impacts are not expected to be long term. • The staged construction of the new bridge The businesses would be expected to would allow for river crossing during continue to be viable in new locations. The construction, but traffic access across the 186 jobs in this building are professional-type bridge would be periodically affected by jobs. The loss of 186 jobs from this specific interim closures to replace the existing location could impact service-oriented bridge and construct the new bridge. businesses in Sellwood if the displaced • Displacement of one residential unit in River businesses did not relocate in the Sellwood Park could increase homeowner association area. fees for remaining River Park owners because

3-90 Sellwood Bridge Project Final Environmental Impact Statement Economic Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

the homeowner association costs would be Mitigation. Mitigation activities associated with divided among fewer units. displacements and other property acquisition impacts are described in Section 3.3, Right-of- • Reconstruction of the displaced River Park Way and Relocation. Economic impacts would be and Sellwood Harbor condominium units and minimized for Alternatives A, B (without the common area adjacent to the displaced temporary detour bridge), and C by maintaining River Park and Sellwood Harbor traffic across the river during construction. If a condominium units could decrease property river crossing were not provided during values of other units in those condominium construction, access to local businesses along communities during construction. detour routes would be maintained and signage • Displacement of common-area landscaping would be provided to direct traffic to businesses and site improvements in the River Park and with modified access. Sellwood Harbor condominiums that would In Alternative D, improvements to SW Taylors be incorporated into the right-of-way could Ferry Road would improve the left-turn decrease the property values of the movement into the River View Cemetery. condominiums. At the completion of construction, no substantial Summary of Alternative-specific Impacts changes to the character of the commercial area Indirect Impacts. Alternatives A, B (without are expected for any of the Build alternatives, so the temporary detour bridge), and C, would no mitigation would be needed. eliminate pass-by traffic and access to the west- side customer base for lengthy periods of bridge 3.6.4 Summary of Alternatives by closures during construction. Although most Differentiating Economic businesses would likely sustain expected losses in income, others might be forced to cease Impact operation. Business closures would be most likely under Alternative C, which has the longest construction period.

TABLE 3.6-1 Summary of Alternatives by Differentiating Economic Impact B with Temporary D Refined No Detour (Preferred Build A B Bridge C D E Alternative) Employees 0 30 30 62 46 30 216 30 Displaced Construction $54 $331– $326 $356 $280 $293– $361 $290–$299 Costs (2012 $337 $311 million dollars)

Construction 12 36 36 39 months 42 45–51 a 36–42 a 51 months Duration months months months months months months Bridge Closure 6–8 24 24 No closure 42 No long- No No long-term Duration months months months months term closure closure b closure b

Sellwood Bridge Project Final Environmental Impact Statement 3-91 Economic Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

TABLE 3.6-1 Summary of Alternatives by Differentiating Economic Impact B with Temporary D Refined No Detour (Preferred Build A B Bridge C D E Alternative) Travel Time and $19.1 $63.3 $63.3 $0 $110.8 $0 $0 $0 Vehicle Operating Cost of Bridge Closure (2008 c millions) Owner and Labor $1.9– $3.8– $3.8– $0 $6.7– $0 $0 $0 Income Losses $4.9 $9.8 $9.8 $17.0 Due to Bridge Closure (2005 millions)d a Construction duration varies by bridge type. In Alternative D, the construction period required for the deck-arch bridge would be longer than for the delta-frame bridge. In Alternative E, the construction period required for the through-arch bridge would be longer than for the box-girder bridge. b Traffic access across the bridge would be periodically affected by interim closures to replace the existing bridge and construct the new bridge. c Total increased travel time and operating costs for motorized vehicle users in weekday morning and evening peak hours during bridge closure. Details of cost calculations are provided in the Sellwood Bridge Project Economic Technical Report (ECONorthwest, 2008; updated 2010). d Details of cost calculations are provided in the Sellwood Bridge Project Economic Technical Report (ECONorthwest, 2008; updated 2010).

3.6.5 Impacts of Project • The 2009 Oregon Jobs and Transportation Financing Act allocated $30 million to the OR 43/ Sellwood Bridge interchange. The long-range needs for transportation projects in the Portland metropolitan area exceed the • The City of Portland has shown willingness to level of federal and state funding that might fund $100 million of the project’s cost out of reasonably be assumed to be available in the a percentage of funds allocated to the City of region. Local funding sources would be needed to Portland by the 2009 Oregon Jobs and pay for costs associated with the Sellwood Bridge Transportation Act. project. • Multnomah County will request $40 million Multnomah County has identified a preliminary as part of the reauthorization of the federal financial plan to fund construction of the transportation legislation that governs United Sellwood Bridge project (Table 3.6-2). The States federal highway and transit following items highlight the funding sources. transportation spending. • The 2009 Oregon Jobs and Transportation • Multnomah County will have approximately Act included a provision for counties to enact $11 million left over from the current project a vehicle registration fee for Willamette River phase. bridge replacement, which includes the

3-92 Sellwood Bridge Project Final Environmental Impact Statement Economic Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

Sellwood Bridge. On October 22, 2009, fund approximately $22 million of the Multnomah County Commissioners approved project’s cost. a $19 annual vehicle registration fee for the These funding sources are estimated to fund approximately 577,250 registered vehicles in $330 million for the Sellwood Bridge. Of this Multnomah County to help replace the funding, $168 million is secured. Another Sellwood Bridge. (Trucks over 26,000 pounds $122 million is expected to be secured in 2010. are excluded by state law because they pay a The remaining $40 million federal request is weight-per-mile fee.) Bond proceeds over a dependent on the reauthorization of the federal 20-year period would be approximately transportation bill. This preliminary financial plan $127 million. The anticipated implementation could change as the project progresses. Before date is fall of 2010. The fee will be in place construction, the Federal Highway Administration for 20 years. (FHWA) must approve a Financial Plan for • Clackamas County elected officials plan to the project. consider enacting a smaller vehicle

registration fee dedicated to replacing the Sellwood Bridge. This fee is anticipated to

TABLE 3.6-2 Preliminary Financial Plan to Fund Sellwood Bridge Project Source Amount Carry Over From Current Project Phase $11 million (secured) 2009 Oregon Jobs and Transportation Act for OR 43/Sellwood Bridge Interchange $30 million (secured) City of Portland Agreement $100 million Federal Reauthorization Request $40 million Multnomah County Vehicle Registration Fee $127 million (secured) Clackamas County $22 million

Total $330 million

Sellwood Bridge Project Final Environmental Impact Statement 3-93 Social Elements Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

Social Elements Summary  3.7 Social Elements  The racial, ethnic, and income composition of the study area would not 3.7.1 Affected Environment change as a result of the No Build The purpose of the social analysis is to evaluate Alternative or any of the Build direct and indirect community impacts associated alternatives. with the No Build Alternative and the Build  Schools would not be affected by the No alternatives. Social effects of transportation Build Alternative or any of the Build projects can be substantial, and often play an Alternatives. important role in the quality of people’s lives.  Bridge closures under the No Build They include changes in neighborhood or Alternative and Alternatives A, B (with community cohesion; changes in travel patterns no temporary detour bridge), and C and accessibility; and impacts to community would adversely affect emergency service access and west-side access to facilities and services, such as religious institutions the only grocery store in Sellwood. and emergency services. Impacts to special populations are addressed in both the social  Noise and visual impacts would adversely elements and environmental justice analyses. To affect the attractiveness of the Oaks Pioneer Church as a location for events avoid duplication, impacts to elderly and disabled under Alternatives A and E. Noise would persons are discussed in this section and impacts negatively affect use of the church while to minority and low-income persons are the Alternative B temporary detour described in Section 3.8, Environmental Justice. bridge was in place. Transportation projects can have effects, both  Community cohesion would be affected by the choice of an east-side connection. positive and negative, beyond the immediate Substantial neighborhood cut-through project site. The project team identified a study traffic would occur under a signalized area that includes neighborhoods, arterials, and intersection at SE 6th Avenue and census tracts that could reasonably be expected SE Tacoma Street. Impacts would be to experience social impacts resulting from the less with the Grand Avenue Extension and least with no change from the Sellwood Bridge project. The study area, shown existing intersection or with a on Figure 3.7-1, is generally defined as the area bicyclist/pedestrian-activated signal only. North-south accessibility would be A disabled individual, as defined by improved with the Grand Avenue the American Disabilities Act, is a Extension. person who has a physical or mental impairment that substantially limits one or more major life activities; between SE 17th Avenue on the east, SE Bybee has a record of such impairment; or Boulevard on the north, SW Taylors Ferry Road is regarded as having such on the west, and the Portland city limits on the impairment. The U.S. Census 2000 south. long form asked respondents about the existence of a physical, mental, or emotional condition in household Demographics members 5 years of age and older. The study area was selected to conform to the

Disabled Individuals Respondents were asked to identify boundaries of geographical units for which data conditions lasting 6 months or are available. The 2000 U.S. Census provided the more, or that made it difficult to perform certain activities, including source for all demographic data. The most useful working and leaving the home. geographic units were Census tracts and block groups (which comprise Census tracts). The

3-94 Sellwood Bridge Project Final Environmental Impact Statement Social Elements Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation following items summarizes relevant 2000 Census  Approximately 25 percent of the study area data for the study area: population listed some form of disability, a percentage lower than those reported for the  Approximately 2,300 households were state of Oregon, Multnomah County, and the occupied by 4,791 residents. city of Portland.  Approximately 89 percent of the population Neighborhoods and Community in the study area were Caucasian, compared Cohesion to 78 percent for the city of Portland. Community cohesion is the quantity and quality  Approximately 9 percent of the population in of interaction between people in a community. the study area were elderly (65 years or Typically, residents feel connected to a older), compared to 12 percent for the city community if they feel socially connected to their of Portland. neighbors, neighborhood businesses, and  Approximately 8 percent of households neighborhood amenities (such as parks and reported zero vehicles. (These households schools). The feeling of social connection is could be used as a proxy for transit- encouraged by close geographic location. dependent households.)

FIGURE 3.7-1

Selected Social Elements

Sellwood Bridge Project Final Environmental Impact Statement 3-95 Social Elements Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

The study area is located within two city- neighborhood areas, which increases social recognized neighborhoods: Sellwood-Moreland connection and interaction among neighborhood and South Portland (formerly Corbett- residents. SE Tacoma Street is the primary east- Terwilliger-Lair Hill). All of the study area on the west local and regional through-fare. It is east side of the Willamette River is located within primarily lined with commercial properties, most the Sellwood-Moreland neighborhood. All of the of which are located at or near the major study area on the west side of the river is located intersections (at SE 13th Avenue and SE 17th within the South Portland neighborhood. Avenue) within the study area. The only grocery store in the study area, New Seasons Market Sellwood, is located on SE Tacoma Street near Community cohesion refers to the 13th Avenue and serves the needs of local quantity and quality of interaction customers on the east and west sides of the between people in a community. Willamette River, as well as pass-by customers Cohesion

Community who use the Sellwood Bridge en route to destinations outside Sellwood. The improvements Sellwood-Moreland Neighborhood implemented as part of the recommendations of The Sellwood Bridge is a gateway to the the Tacoma Main Street Plan (City of Portland, Sellwood-Moreland neighborhood. Sellwood 2001) have enhanced pedestrian mobility and Moreland Improvement League (SMILE) is the accessibility on SE Tacoma Street. Bicycle city-recognized neighborhood association for this boulevards are located on SE Spokane Street and area. The boundaries of the Sellwood-Moreland SE Umatilla Street, east-west aligned streets neighborhood are OR 99E (SE McLoughlin north and south of SE Tacoma Street. These and Boulevard) on the north and east, Portland city other east-west aligned streets are local streets limits on the south, and the Willamette River on that provide access to residential areas. the west. The parks and undeveloped land along the east bank of the Willamette River give The primary north-south through-fares character to the area and are important (SE Milwaukie Avenue, SE 13th Avenue, and neighborhood features. North of the Sellwood SE 17th Avenue) are important for social Bridge, a large portion of the Willamette River’s interaction and contribute to neighborhood edge is devoted to Sellwood Riverfront Park. identity, character, and livability. Coffee shops, Other occupants along the river are moorages, restaurants, taverns, and antique emporiums line Oaks Amusement Park, Oaks Bottom Wildlife these commercial streets and serve as Refuge, and residential and commercial neighborhood gathering places, as well as properties. The Oaks Bottom Wildlife Refuge, shopping and dining destinations for visitors from which is approximately 160 acres, is outside the neighborhood. An established predominately a floodplain wetland system regional antique district is concentrated on consisting of several vegetation communities. SE 13th Avenue, but recent additions to the South of the Sellwood Bridge, condominium district have been introduced near the buildings and moorages primarily occupy the intersection of SE Bybee Boulevard and Willamette River’s edge. The open spaces along SE Milwaukie Avenue. The other north-south the Willamette River contribute to the aligned streets are local streets that provide neighborhood’s identity and character and are access to residential areas. integral locations for social interaction. The east side of the study area is dominated by The grid street network of the Sellwood- properties with single-family detached homes. Moreland neighborhood allows for maximum Most of these homes were built prior to 1930. connectivity and accessibility between Home styles vary from Victorian to ranch, but

3-96 Sellwood Bridge Project Final Environmental Impact Statement Social Elements Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation infill development within the neighborhood is Boulevard forms most of the western boundary. replacing some of the smaller, less-valued housing Only a small segment of the South Portland units. Through restoration and renovation, the neighborhood is inside the study area. neighborhood retains its historic housing; infill The neighborhood, formerly known as Corbett- housing is generally compatible with the older Terwilliger-Lair Hill, changed its name in housing stock. Sellwood-Moreland retains its September 2006 to be more concise and status as a popular Portland neighborhood for the inclusive. South Portland was the name of a 19th quality of its housing and well-established century community that overlapped the present- residential neighborhood streets. day neighborhood. The South Portland The River Park and Sellwood Harbor neighborhood includes many smaller condominium developments are located along the neighborhoods within its boundaries, including Willamette River immediately north and south of Lair Hill, South Waterfront, Corbett, Johns the Sellwood Bridge. Moorages are also located Landing, Terwilliger, and Fulton. along the Willamette River, including the Oregon The portion of the study area within the South Yacht Club, which is located in the extreme Portland neighborhood is limited to a few northern portion of the study area on the industrial uses immediately east of OR 43 and Willamette River next to Oaks Amusement Park, single-family residential uses near the Willamette with access provided at the terminus of SE Oaks River further east of OR 43. Willamette Park, Park Way. Butterfly Park, Willamette Moorage Park, and a The Sellwood-Moreland Neighborhood Plan (City of portion of River View Cemetery are located in Portland, 1998) provides policy guidance for the the southern and eastern portions of the South neighborhood. The plan’s policy topics include Portland neighborhood. neighborhood character and identity, form and urban design, river edge, SE Tacoma Street, Community Features and Events pedestrian-oriented commercial areas, residential Figure 3.7-1 illustrates selected community areas, environment and green spaces, and features within the study area. Table 3.7-1 transportation. describes these neighborhood features. Parks and other recreational resources are discussed in South Portland Neighborhood Section 3.9, Parks and Recreation. The South Portland Neighborhood is the city- recognized neighborhood association for the area Emergency and Medical Services south of downtown along the Willamette River. The City of Portland provides police and fire The South Portland neighborhood boundaries are protection to all areas within the study area. approximately from I-405 and the Marquam Figure 3.7-2 illustrates street sections inside the Bridge on the north to SW Canby Street and study area classified as Emergency Response Butterfly Park in the south. The Willamette River Streets in the City of Portland Transportation is the eastern boundary, and SW Barbur System Plan (2004, updated in 2007).

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TABLE 3.7-1 Selected Social Elements Element Description School Facilities Sellwood Middle School Sellwood Middle School is a Portland public school. The school was built 8300 SE 15th Avenue in 1914 and serves students in the 6th through 8th grades. Saint Agatha Catholic School The Archdiocese of Portland’s Department of Catholic Schools 7960 SE 15th Avenue administers Saint Agatha Catholic School. The school opened in 1912, but the original school building was replaced by a new building in 2003. The school serves students in kindergarten through 8th grade. Religious Institutions Oaks Pioneer Church This nondenominational church is owned and operated by the Sellwood- 455 SE Spokane Street Moreland Improvement League. For more information on this church, see Section 3.10, Archaeological and Historic Resources. Immanuel Lutheran Church Denomination is Lutheran. 7810 SE 15th Avenue Calvary Open Bible Church Nondenominational. 901 SE Spokane Street Saint Agatha Catholic Church Denomination is Catholic. 7960 SE 15th Avenue Sellwood Baptist Church Denomination is Baptist. 1104 SE Spokane Street Sellwood United Methodist Church Denomination is Methodist. 1422 SE Tacoma Street Public Library Sellwood-Moreland Neighborhood Part of the Multnomah County Library system, Sellwood-Moreland Library Neighborhood Library users have access to Multnomah County Library's 7860 SE 13th Avenue system-wide catalog of 2 million books and other library materials. The library has a meeting room with a 20-person capacity for community meetings and events. Post Office Sellwood-Moreland Branch The Sellwood-Moreland branch of the U.S. Post Office is located within 6723 SE 16th Avenue the study area. Community Facilities Sellwood Community Center The Sellwood Community Center includes an indoor basketball court, a 1436 SE Spokane Street community center, a gymnasium, a meeting room, a party room, a playground, and a wedding site. Originally constructed as a residential hotel for the men who worked in the old Sellwood Log Mill, it became the first branch of the YMCA in 1910. The City of Portland purchased the facility in 1920 as its second community center. Most of the original architecture has been preserved.

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TABLE 3.7-1 Selected Social Elements Element Description SMILE Station The headquarters of the Sellwood-Moreland Improvement League; 8210 SE 13th Avenue monthly neighborhood association meetings are held in this building. The converted 1926 firehouse is available for meetings, workshops, wedding receptions, and other events. Meyer Memorial Boys & Girls Club Operated by the Boys & Girls Clubs of Portland Metropolitan Area, the 7119 SE Milwaukie Avenue Meyer Memorial Club offers summer and after-school activities and programs for children and teens. The club has an art room, a gym, a game room, a learning center, and a teen center. Grocery Stores Sellwood New Seasons Market New Seasons Market provides its customers with local and organic food, 1214 SE Tacoma Street as well as more commonly available food products. Grocery store access is important to a community’s sense of place, because the grocery store is often a busy community hub. It is also important to food security, especially in the event of a catastrophic emergency. The store relies partially on pass-by trips on SE Tacoma Street for patrons and serves a significant number of residents directly west of Sellwood Bridge in South Portland. Cemeteries River View Cemetery River View Cemetery encompasses most of the study area on the west side of the Willamette River. Established in 1882, River View Cemetery is the oldest not-for-profit cemetery in the Portland area. It is owned and operated by the River View Cemetery Association and is governed by a volunteer Board of Trustees. Because of its age and the origins of its establishment in the early 1880s, the cemetery contains the remains of persons who are considered important in the history, politics, and social landscape of Portland in the late 19th century. For more information on River View Cemetery and its historic significance, see Section 3.10, Archaeological and Historic Resources. Community River-based Major Events Sellwood Bridge Vicinity No major river-based events occur on the Willamette River within the vicinity of the Sellwood Bridge. Fireworks displays for the 4th of July and New Year’s Eve on the river attract a few viewers in boats within the Sellwood Bridge vicinity, but the majority of viewers stay farther north of the bridge vicinity. Major events occurring within the study area parks are listed in Section 3.9, Parks and Recreation.

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FIGURE 3.7-2 Transit and Emergency Vehicle Routes

The study area falls within two precincts of the Fire Station 10 (Battalion 1), the Burlingame Portland Police Bureau—the Central Precinct and Station at 451 SW Taylors Ferry Road, is located the Southeast Precinct. The study area west of within the study area, and responds to the the Willamette River is entirely located in portion of the study area west of the Willamette District 890 of the Central Precinct. The study River. Fire Station 20 (Battalion 2), the area east of the Willamette River is entirely Sellwood/Moreland Station at 2235 SE Bybee located in District 762 of the Southeast Precinct. Boulevard, is located outside the study area, but No police facilities are located in the study area. responds to the portion of the study area east of Police departments at 4735 E Burnside Street and the Willamette River. 1111 SW 2nd Avenue are the two facilities The use of the Sellwood Bridge by fire apparatus closest to the study area. is greatly limited. While ambulances can use the The Portland Fire, Rescue, and Emergency bridge, fire engines may use the bridge for Services Bureau provides fire suppression and emergency response only, with speeds restricted prevention services within the study area. The to 15 miles per hour. Other fire apparatus, department also offers regional hazardous including fire trucks, are unable to use the bridge material emergency response, special rescue, and due to weight restrictions. This significantly community outreach. The study area is split increases response times for multiple-unit between two fire and rescue districts (battalions). responses, including residential fires, commercial

3-100 Sellwood Bridge Project Final Environmental Impact Statement Social Elements Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation fires, major gas incidents, hazardous materials Providence Milwaukie hospital provides incidents, or specialty rescues. emergency, ambulatory surgery, geriatric, maternity, transfusion, rehabilitation, and sleep City of Portland Fire and Rescue operates three study services, among others. Providence fireboats and two rescue boats that respond to Milwaukie hospital relies on OR 43 and the fires, vessels in distress, water rescues, Sellwood Bridge for delivery of supplies. The navigational hazards, and environmental concerns. hospital provided patient data aggregated at the The City of Portland Harbormaster reports that zip code level for 2007. These data provide a fireboats make four to five weekly trips through snapshot of patients who were treated at the Willamette River within the vicinity of the Providence Milwaukie in 2007, but do not Sellwood Bridge. The largest of the fireboats necessarily predict future utilization of the measures 20 feet from the vertical waterline to hospital. Approximately 0.6 percent of total the top of the vessel. Providence Milwaukie patients treated in 2007 Medical Facilities resided in zip codes west of the Sellwood Bridge. No major medical facilities are located within the 3.7.2 No Build Alternative study area. The nearest hospitals are Providence Milwaukie and Oregon Health & Science Environmental University (OHSU). Providence Milwaukie is Consequences south of the study area, at 10150 SE 32nd Avenue Impacts that would occur under the No Build in Milwaukie. OHSU is located at 3181 SW Sam Alternative are shown in Table 3.7-2. To avoid Jackson Park Road, north of the study area. redundancy, these impacts are limited to those not described in other sections (that is, The Sellwood Bridge via OR 99E (SE McLoughlin 3.1 Transportation, 3.3 Right-of-Way and Boulevard) and SE Tacoma Street is a primary Relocation, 3.5 Land Use, 3.6 Economic, 3.9 Parks route for emergency vehicles en route to OHSU. and Recreation, 3.11 Visual Resources, and OHSU relies heavily on OR 43 as an emergency 3.19 Noise). route to its services. OR 43 is the main roadway access from Milwaukie, West Linn, Gladstone, 3.7.3 Build Alternatives and other points south of OHSU. The OR 43 route provides emergency response vehicles with Environmental two lanes in each direction north of the Consequences Dunthorpe area, which allows traffic to pull over Impacts and Mitigation Common to and yield to ambulances. OHSU employees also All Build Alternatives depend on the Sellwood Bridge and OR 43 for Direct Impacts. The direct social impacts work access. Because of topography constraints, common to the Build alternatives are illustrated parking is severely limited at OHSU—only 2,000 in Table 3.7-3. To avoid redundancy, these parking spaces serve visitors, services, and the impacts are limited to those not described in 12,800 employees. Lack of transit and safe, other sections (that is, 3.1 Transportation, comfortable bicycle and pedestrian crossing 3.3 Right-of-Way and Relocation, 3.5 Land Use, conditions at the Sellwood Bridge are currently 3.6 Economic, 3.9 Parks and Recreation, negative factors for OHSU employees. OR 43 3.11 Visual Resources, and 3.19 Noise). allows access to SW Moody Avenue, where OHSU has its newest facilities and has plans for expansion.

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TABLE 3.7-2 Social Impacts under the No Build Alternative Factor Impact Neighborhood demographics Racial, ethnic, and income composition of the study area would not be expected to change. Community cohesion Community cohesion would not be affected. Emergency services Bridge closure for maintenance activities (6 to 8 months) would negatively impact emergency service routes, especially in the event of a catastrophic event, because no river crossing would be provided during maintenance activities. Potential temporary closure of OR 43 for maintenance activities would negatively impact transport time to OHSU, which relies on OR 43 as a major emergency route. Fire and police protection are serviced locally, so they would not be affected. Any bridge closure to all traffic in the future because of structural deficiencies would have a negative impact during a major catastrophe. Community facilities Community facilities would not be affected. Schools Schools would not be affected. Cemeteries Cemeteries would not be affected.

TABLE 3.7-3 Direct Social Impacts Common to the Build Alternatives Element Impact Neighborhood Racial, ethnic, and income composition of the study area would not be expected to demographics change as a result of the project. Community cohesion Residential and business displacements would not be expected to affect community cohesion. Schools Schools would not be affected by the project.

Community concerns relevant to social impacts minimize private property impacts as much as expressed during Community Task Force (CTF) possible. These concerns were also integrated meetings and at public open houses focused on a into the development of Build alternatives. Traffic desire to develop alternatives consistent with the diversion through the Sellwood neighborhood, Tacoma Main Street Plan (City of Portland, 2001). identified as a key neighborhood concern, is The plan calls for SE Tacoma Street to remain a discussed subsequently in relation to each two-travel-lane facility. This concern was alternative. incorporated into the development of Indirect Impacts. Indirect social impacts alternatives; consequently, none of the Build common to the Build alternatives are discussed in alternatives would increase the number of travel Section 3.5, Land Use. Key indirect impacts that lanes on SE Tacoma Street. Other primary would affect the social setting of the community community concerns were to maintain the include the potential for moderate intensification Sellwood Bridge as a lifeline route and to of existing land uses, increased transit-oriented

3-102 Sellwood Bridge Project Final Environmental Impact Statement Social Elements Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation development, and increased “walk-by” traffic for Alternative-specific Impacts and commercial enterprises in Sellwood. These Mitigation impacts would stem from the reintroduction of Environmental consequences and mitigation for transit and the improvement of bicycle and each Build alternative are summarized in the pedestrian facilities on the bridge. following subsections. To avoid redundancy, Mitigation. All Build alternatives would these impacts are limited to those not described permanently change access locations to River in other sections (that is, 3.1 Transportation, View Cemetery and other park, residential, and 3.3 Right-of-Way and Relocation, 3.5 Land Use, business locations, including the potential for 3.6 Economic, 3.9 Parks and Recreation, limitation of turning movements in and out of 3.11 Visual Resources, and 3.19 Noise). driveways. Mitigation measures related to right- Alternative A of-way and access modifications are discussed in Direct Impacts. The direct social impacts Section 3.3, Right-of-Way and Relocation. specific to Alternative A are listed in Table 3.7-4. Potential closures of or disruption to river Indirect Impacts. No alternative-specific navigation would be communicated to emergency impacts to community cohesion, emergency services personnel, including Portland Police and services, or River View Cemetery are expected. Fire, Multnomah County River Patrol, OHSU, The presence of the bicycle/pedestrian bridge Providence Milwaukie hospital, and ambulance could diminish the appeal of Oaks Pioneer Park dispatching services (such as American Medical and Oaks Pioneer Church as a site for events. Response and Metro West).

TABLE 3.7-4 Direct Social Impacts under Alternative A Element Impact Community The potential for cut-through traffic in the neighborhood is the same as under the No Build cohesion Alternative. Alternative A would not alleviate the existing difficulty of movement across SE Tacoma Street during peak hours. Motorized vehicles could only turn right with ease. Bicycle and pedestrian crossings of SE Tacoma Street would be difficult at all non-signalized locations. SE Tacoma Street is not expected to become an attractive through route for very large cargo trucks. Increased truck usage on the bridge is expected to support delivery of goods and services to the local area and not create a barrier affecting community cohesion. Emergency Bridge closure during construction (24 months) would negatively impact emergency service services routes, especially in the case of a catastrophic event, because no river crossing would be provided during construction. Temporary closure of OR 43 during construction would negatively impact transport time to OHSU, which relies on OR 43 as a major emergency route. Fire and police protection are serviced locally, so they would not be affected. Community The visual presence of the bicycle/pedestrian bridge would potentially reduce the appeal of facilities Oaks Pioneer Church as a venue for events. Closure of Sellwood Bridge during construction would negatively impact grocery store access for communities on the west side of the river. Cemeteries Access to River View Cemetery would be provided on a new road from the west-side interchange; access during construction would be maintained.

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These effects could lead to an indirect negative expected under Alternative B. Noise from the impact to SMILE, a community-based organization temporary detour bridge could lead to an that relies on revenues from functions held at indirect negative impact to SMILE, a community- Oaks Pioneer Church to carry out its programs based organization that relies on revenues from and events, which benefit the community. Any functions held at Oaks Pioneer Church to carry resulting loss in revenue to SMILE could affect out its programs and events, which benefit the their ability to carry out programs and events, community. Any resulting loss in revenue to which would negatively affect the community. SMILE could affect its ability to carry out programs and events, which would negatively Mitigation. Construction of a temporary detour affect the community. bridge would eliminate adverse impacts to emergency services and community facilities Mitigation. Construction of a temporary detour under Alternative A. Visual impacts of the bridge would eliminate adverse impacts to bicycle/pedestrian bridge could be mitigated by emergency services and community facilities planting vegetation to screen views of the bridge under Alternative B. from the church. Temporary Detour Bridge Option Alternative B The direct and indirect impacts with the optional Direct Impacts. The direct social impacts temporary detour bridge would be the same as specific to Alternative B are listed in Table 3.7-5. those without the temporary detour bridge, except that access across the river for emergency Indirect Impacts. No alternative-specific services would be provided during construction. indirect impacts to community cohesion, emergency services, or River View Cemetery are

TABLE 3.7-5 Direct Social Impacts under Alternative B Element Impact Community The potential for cut-through traffic in the neighborhood is the same as under the No Build cohesion Alternative. Alternative B would not alleviate the existing difficulty of movement across SE Tacoma Street during peak hours. Motorized vehicles could only turn right with ease. Bicycle and pedestrian crossings of SE Tacoma Street would be difficult at all non-signalized locations. SE Tacoma Street is not expected to become an attractive through route for very large cargo trucks. Increased truck usage on the bridge is expected to support delivery of goods and services to the local area and not create a barrier affecting community cohesion. Emergency If no temporary detour bridge were provided, bridge closure during construction services (24 months) would negatively impact emergency service routes, especially in the event of a catastrophic event, because no river crossing would be provided during construction. Temporary closure of OR 43 during construction would negatively impact transport time to OHSU, which relies on OR 43 as a major emergency route. Fire and police protection are served locally, so they would not be affected. Community The temporary detour bridge would generate adverse noise impacts to Oaks Pioneer facilities Church that would diminish its attractiveness for events in the short term. If no temporary detour bridge were provided, bridge closure during construction would negatively impact grocery store access for communities on the west side of the river. Cemeteries Access to River View Cemetery would be provided on a new road from the west-side interchange; access during construction would be maintained.

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Alternative C emergency services, community facilities, or Direct Impacts. The direct social impacts cemeteries are expected under Alternative D. specific to Alternative C are listed in Table 3.7-6. Mitigation. No alternative-specific mitigation is Indirect Impacts. No alternative-specific anticipated. indirect impacts to community cohesion, emergency services, or community facilities are Alternative E Direct Impacts. The direct social impacts expected under Alternative C. Owners of River specific to Alternative E are listed in Table 3.7-8. View Cemetery indicate they would move the funeral home (currently located in the Indirect Impacts. Alternative E could diminish Superintendent's House) to a new location if the appeal of Oaks Pioneer Park and Oaks access from OR 43 were eliminated. Pioneer Church as a site for events such as memorials and wedding ceremonies because of Mitigation. Construction of a temporary detour the visual and noise impacts of a new bridge bridge would eliminate adverse impacts to alignment (see Section 3.11, Visual Resources, emergency services and community facilities and Section 3.19, Noise). These effects could lead under Alternative C. Access to River View to an indirect negative impact to SMILE, a Cemetery from SW Taylors Ferry Road would be community-based organization that relies on improved. revenues from events held at Oaks Pioneer Alternative D Church to carry out its programs and events, Direct Impacts. The direct social impacts which benefit the community. Any resulting loss specific to Alternative D are listed in Table 3.7-7. in revenue to SMILE could affect its ability to carry out other programs and events, which Indirect Impacts. No alternative-specific would negatively affect the community. indirect impacts to community cohesion,

TABLE 3.7-6 Direct Social Impacts under Alternative C Element Impact Community cohesion The SE Grand Avenue extension would moderately increase neighborhood cut-through traffic, but would improve motorized vehicle, bicycle, and pedestrian access to areas north of SE Tacoma Street and west of SE 13th Avenue. For more information, see Section 3.1, Transportation. Emergency services Bridge closure during construction (42 months) would negatively impact emergency service routes, especially in the event of a catastrophic event, because no river crossing would be provided during construction. Temporary closure of OR 43 during construction would negatively impact transport time to OHSU, which relies on OR 43 as a major emergency route. Fire and police protection are serviced locally, so they would not be affected. Community facilities Closure of Sellwood Bridge during construction would negatively impact grocery store access for communities on the west side of the river. Cemeteries River View Cemetery access on OR 43 would be removed, requiring clients and employees to use a circuitous entry route to the funeral home from SW Taylors Ferry Road.

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TABLE 3.7-7 Direct Social Impacts under Alternative D Element Impact Community cohesion Signalization of the SE Tacoma Street and SE 6th Avenue intersection would substantially increase neighborhood cut-through traffic, would not improve access to existing land uses, and would cause traffic to back up to the OR 43 interchange. The traffic signal would provide an additional protected crossing of SE Tacoma Street that would benefit bicyclists and pedestrians, especially elderly and handicapped travelers. Emergency services Temporary closure of OR 43 during construction would negatively impact transport time to OHSU, which relies on OR 43 as a major emergency route. Access across the river for emergency services would be provided during construction, but traffic access across the bridge would be periodically affected by interim closures to replace the existing bridge and construct the new bridge. Community facilities Access would be maintained to community facilities during construction. Cemeteries Access to River View Cemetery would be provided on a new road from the west-side interchange; access during construction would be maintained.

TABLE 3.7-8 Direct Social Impacts under Alternative E Element Impact Community cohesion Signalization of the SE Tacoma Street and SE 6th Avenue intersection would substantially increase neighborhood cut-through traffic, would not improve access to the existing land uses, and would cause traffic to back up to the OR 43 interchange. The traffic signal would provide an additional protected crossing of SE Tacoma Street that would benefit bicyclists and pedestrians, especially elderly and handicapped travelers. Emergency services Temporary closure of OR 43 during construction would negatively impact transport time to OHSU, which relies on OR 43 as a major emergency route. Access across the river for emergency services would be provided during construction. Community facilities Access would be maintained to community facilities during construction. Having the bridge structure adjacent to Oaks Pioneer Park would potentially impact the appeal of Oaks Pioneer Church as a venue for events. Cemeteries Access to River View Cemetery would be provided on a new road from the west-side interchange; access during construction would be maintained.

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TABLE 3.7-9 Direct Social Impacts under Preferred Alternative (Alternative D Refined) Element Impact Community cohesion The potential for cut-through traffic in the neighborhood is the same as under the No Build Alternative. Alternative D Refined would not alleviate the existing difficulty of vehicle movement across SE Tacoma Street during peak hours. Motorized vehicles could only turn right with ease. A bicyclist/ pedestrian-activated signal at the SE Tacoma Street and SE 6th Avenue intersection would provide an additional protected crossing of SE Tacoma Street that would benefit bicyclists and pedestrians, especially elderly and handicapped travelers. SE Tacoma Street is not expected to become an attractive through route for very large cargo trucks. Increased truck usage on the bridge is expected to support delivery of goods and services to the local area and not create a barrier affecting community cohesion. Emergency services Temporary closure of OR 43 during construction would negatively impact transport time to OHSU, which relies on OR 43 as a major emergency route. Access across the river for emergency services would be provided during construction, but traffic access across the bridge would be periodically affected by interim closures to replace the existing bridge and construct the new bridge. Community facilities Access would be maintained to community facilities during construction. Cemeteries Access to River View Cemetery would be provided on a new road from the west-side interchange; access during construction would be maintained.

Mitigation. No mitigation measures to reduce emergency services, community facilities, or impacts of the Alternative E bridge alignment on cemeteries are expected under Alternative D Oaks Pioneer Park and Oaks Pioneer Church Refined. have been identified. Mitigation. No alternative-specific mitigation is Alternative D Refined anticipated. (Preferred Alternative) Direct Impacts. The direct social impacts 3.7.4 Summary of Alternatives by specific to Alternative D Refined are listed in Differentiating Social Table 3.7-9. Impact Indirect Impacts. No alternative-specific indirect impacts to community cohesion,

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TABLE 3.7-10 Summary of Alternatives by Differentiating Social Impact D Refined Impact No Build A B C D E (Preferred Alt.)

Community None to minimal None to minimal None to minimal Minimal to moderate Moderate to Moderate to None to minimal cohesion: increase substantial substantial in neighborhood cut-through traffic

Community None None None Improve motorized Protected Protected Protected crossing; cohesion: vehicle, bicycle, and crossing; benefit to crossing; benefit benefit to bicyclists improvement of pedestrian access to bicyclists and to bicyclists and and pedestrians north-south areas north of SE pedestrians pedestrians (especially elderly crossing of Tacoma Tacoma Street and (especially elderly (especially and handicapped) west of SE 13th Avenue and handicapped) elderly and handicapped)

Emergency 6- to 8-month 24-month closure 24-month closure 42-month closure Access No closure Access services: river closure without temporary periodically periodically crossing during detour bridge affected by affected by interim construction interim closures closures

Community None Visual impacts on Noise impacts of None None Noise and visual None facilities: Oaks Oaks Pioneer temporary detour impacts to Oaks Pioneer Church Church (during bridge Pioneer Church construction and (during operation) construction and operation)

Community Access limitation Access limitation Access limitation Access limitation for None None None facilities: access to for west-side for west-side for west-side west-side customers businesses customers customers (during customers (during (during 42-month (during 6- to 24-month closure) 24-month closure); closure) 8-month closure) No impact with temporary detour bridge

Access to River No change; Modified access to Modified access to Removal of access to Modified access to Modified access Modified access to View Cemetery access maintained River View River View River View Cemetery River View to River View River View funeral home Cemetery Cemetery from OR 43 Cemetery Cemetery Cemetery

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3.8 Environmental Justice Environmental Justice Summary The environmental justice study concluded 3.8.1 Affected Environment that the Sellwood Bridge project would not Environmental justice studies analyze the planning result in disproportionately high and adverse effects on minority and/or low income and development of transportation projects in populations. Residential and business relation to three objectives: displacements would not be borne disproportionately by minority or low  Avoid, minimize, or mitigate income populations. Restoration of transit disproportionately high and adverse human service on the bridge and improvement of health and environmental effects on minority bicyclist and pedestrian facilities could and low-income populations benefit the low-income populations to a greater extent than the population as a  Ensure the full and fair participation by all whole. potentially affected communities in the transportation decision-making process low-income populations through the following research:  Prevent the denial, reduction, or delay of project benefits to minority and low-income  Analysis of demographic data from the 2000 populations United States Census (Census)  Interviews with service providers The environmental justice analysis was conducted pursuant to the  Findings from affected property-owner and following federal and state laws and tenant surveys regulations: • Presidential Executive Order (EO)  Review of feedback received from the public 12898, Federal Actions to Address Environmental Justice in Minority Population data for the study area were derived Populations and Low-Income from the 2000 Census. The project team Populations supplemented this demographic data with • Federal Highway Administration information gathered through interviews with (FHWA), Guidance for Preparing several community service providers and through and Processing Environmental and public outreach activities conducted during the Section 4(f) Documents, Technical Advisory T6640.8a project (described in Chapter 5). This supplemental information increased project team • FHWA, Actions to Address Environmental Justice in Minority understanding of demographic changes since the Populations and Low-Income 2000 Census, and of minority and/or low-income Populations population use of the Sellwood Bridge. • Title VI of the Civil Rights Act of 1964 Two study areas were identified for this analysis,

Environmental Justice Regulatory Context a direct impact study area (Figure 3.8-1) and a • Oregon State Legislature, Senate Bill 420 Related to Environmental larger indirect impact study area (Figure 3.8-2). Justice Both areas were selected to conform to the boundaries of geographical units for which data Environmental justice analysis for this project are available. For analyzing direct impacts, the determined whether the project would result in most relevant geographic units were Census disproportionately high and adverse human health tracts and Census block groups immediately or environmental effects on minority and adjacent to the Sellwood Bridge. Data within these Census tracts were analyzed at the smallest

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FIGURE 3.8-1 Environmental Justice Direct Impact Study Area

geographic unit available. Results were compared south, and OR 99W (SW Barbur Boulevard) to regional demographic data for the Portland- to the west. Vancouver Primary Metropolitan Statistical Area (PMSA). The direct impact study area consists of  Census Tract 63 is also on the west side of three Census tracts: the bridge and is bounded by SW Taylors Ferry Road to the north, the Willamette  Census Tract 1 is on the east side of the River to the east, the Clackamas County line bridge and is bounded by SE Powell to the south, and Tryon Creek to the west. Boulevard to the north, OR 99E (SE McLoughlin Boulevard) to the east, the For the Environmental Justice Clackamas County line to the south, and the analysis, minority populations are Willamette River to the west. defined as African American, Asian American, American Indian/Alaskan  Census Tract 59 is on the west side of the Native, and Native Hawaiian/Pacific Minority Islander racial groups, and people of

bridge and extends north to US 26 (Sunset Populations Highway). It is bounded by the Willamette Hispanic origin, regardless of race. River to the east, the Sellwood Bridge to the

3-110 Sellwood Bridge Project F i n a l Environmental Impact Statement Environmental J us t i c e Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

FIGURE 3.8-2 Environmental Justice Indirect Impact Study Area

The indirect impact study area represents the Table 3.8-1 illustrates the minority levels by approximate commute shed for the current geographic area. Sellwood Bridge as determined by assessing the For the Portland-Vancouver PMSA, the average model data on the current-year travel demand minority population is 15.3 percent. The minority for the origins and destinations of Sellwood population for each of the three U.S. Census Bridge users. These study area boundaries tracts within the direct impact study area is include the Burnside Bridge to the north, I-205 to smaller than the Portland-Vancouver PMSA the east and south, and the Washington County average except for Census Tract 1.00, Block border to the west. Group 1, which has 17.8 percent minority Minority Populations households. Overall, the minority population of Minority populations are defined as African the indirect study area is below the Portland- American, Asian American, American Vancouver PMSA threshold for minority Indian/Alaskan Native, and Native populations. (The Sellwood Bridge Project Hawaiian/Pacific Islander racial groups, and people Environmental Justice Technical Report of Hispanic origin, regardless of race. [CH2M HILL, 2008g, updated in 2010] includes a

Sellwood Bridge Project F i na l Environmental Impact Statement 3-111 Environmental Justice Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation more detailed description of minority populations of Health and Human Services poverty guidelines. in the direct and indirect study areas.) For example, the poverty threshold in 1999 for a three-person household (including one child) was Low-income Populations $13,410 earned per year, while the threshold for Income considerations are broken into two a two-person household with no children was groups, very low-income households (those $11,156. The project team compared the below the poverty threshold) and low-income percentage of households below the poverty households (those below twice the poverty threshold (as defined by the U.S. Census Bureau) threshold). The U.S. Census Bureau defines the against the Portland-Vancouver PMSA average. poverty threshold as the amount of household Those areas with percentages higher than the earnings with consideration of the number of Portland-Vancouver PMSA average were people in the household below a certain level. identified as very low-income populations. The This definition is based on the U.S. Department team also identified low-income populations

TABLE 3.8-1 Non-white or Hispanic by Census Tract within the Study Area Minority Geographic Area (percent) Portland-Vancouver PMSA Average 15.3 Direct Impact Study Area Average 8.2 Census Tract 1.00 11.8 Census Tract 1, Block Group 1 17.8 Census Tract 1, Block Group 5 10.7 Census Tract 1, Block Group 6 1.0 Census Tract 1, Block Group 7 7.7 Census Tract 59.00 14.3 Census Tract 59, Block Group 1 6.4 Census Tract 63.00 11.2 Census Tract 63, Block Group 1 9.0 Indirect Impact Study Area Average 9.6 City of Portland Average 20.3 Multnomah County Average 19.3 State of Oregon Average 13.5

Note: Numbers in bold are higher than the Portland-Vancouver PMSA average. In the 2000 Census, people of Hispanic origin were asked to classify themselves as white or another race, including African American, Asian American, Native American/Alaskan Native, Native Hawaiian/Pacific Islander, two or more races, or other. Table P7 of the 2000 Census, SF3 (U.S. Census Bureau) was used to determine the percentage of minority to avoid double counting those selecting both the Hispanic ethnicity and a minority race category. PMSA = Primary Metropolitan Statistical Area Source: U.S. Census Bureau, 2000 Census, SF3, Table P6, Race, and Table P7, Hispanic or Latino by Race.

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(defined as below two times the poverty more detailed description of low-income threshold). populations in the direct and indirect study areas.) Table 3.8-2 describes the very low-income and low-income levels by geographic area in the 3.8.2 No Build Alternative direct and indirect study areas. Environmental The percentage of low-income households for Consequences the direct impact area is slightly lower than that Bus service, sidewalks, and bicycle infrastructure for the Portland-Vancouver PMSA average, and are low-income considerations, because low- only one of the Census tracts—Census Tract income populations may be transit-dependent 59.00—has a higher concentration of low- and and unable to afford a private vehicle (Pisarski, very low-income households than the Portland- 2006). The No Build Alternative would maintain Vancouver PMSA average. (The Sellwood Bridge the existing weight restriction across the Project Environmental Justice Technical Report Sellwood Bridge, which would preclude TriMet [CH2M HILL, 2008g, updated in 2010] includes a bus service from using the bridge. The No Build

TABLE 3.8-2 Low-Income and Very Low-Income Population by Census Tract within the Study Area Very Low Income Low Income (Below Poverty Level) (Below Twice Poverty Level) Geographic Area (percent) (percent) Portland-Vancouver PMSA Average 9.5 24.2 Direct Impact Study Area Average 9.1 21.1 Census Tract 1.00 8.3 21.4 Census Tract 1, Block Group 1 3.0 26.8 Census Tract 1, Block Group 5 8.5 27.8 Census Tract 1, Block Group 6 5.0 15.9 Census Tract 1, Block Group 7 14.6 21.1 Census Tract 59.00 11.9 26.4 Census Tract 59, Block Group 1 8.9 19.4 Census Tract 63.00 7.0 15.7 Census Tract 63, Block Group 1 6.1 14.4 Indirect Impact Study Area Average 10.9 25.3 City of Portland Average 13.1 17.3 Multnomah County Average 12.7 16.9 State of Oregon Average 11.6 18.0

Note: Numbers in bold are higher than the Portland-Vancouver PMSA average. PMSA = Primary Metropolitan Statistical Area Source: U.S. Census Bureau, 2000 Census, SF3, Table P88, Ratio to Income in 1999 to Poverty Level.

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Alternative would continue to restrict bus transit between one and eight. The total number of service across the Sellwood Bridge and would employees potentially displaced in this building continue to be a barrier for transit-dependent would be 30. Three employees identified persons. themselves as minority status, and one self- identified as low income (earning under $10,000 The No Build Alternative would maintain the per year). This particular business reported that current deficient bicyclist and pedestrian two of the three employees worked on a part- connections across the bridge. The narrow time basis. existing sidewalk and poor bicyclist and pedestrian connections to regional trails could Indirect Impacts. The Build alternatives could adversely affect individuals who do not drive due have a positive effect on the development of to financial considerations. transit-oriented land-use development in the Sellwood neighborhood and OR 43 corridor as a 3.8.3 Build Alternatives result of the resumption of bus service across the Environmental bridge. Such high-density commercial Consequences development in transit corridors could improve access to shopping for low-income individuals Impacts and Mitigation Common to without access to automobiles who are passing All Build Alternatives through the area. Direct Impacts. The Build alternatives would improve crossing of the Willamette River in the Alternative-specific Impacts study area in the long term (after construction) Alternative A for transit riders, bicyclists, and pedestrians Alternative A would close the bridge for because bus service would be reinstated (Section 24 months during construction without a 3.1, Transportation) and improved bicyclist and temporary detour bridge. During construction, pedestrian facilities would be provided (Section users would need to reroute trips to other 3.2, Bicyclists and Pedestrians). These Willamette River crossings, such as the Ross improvements would benefit all users of the Island Bridge or the I-205 Abernethy Bridge. bridge. However, because low-income Although this routing change would impact all populations are more likely to travel via transit, users of the bridge, its impact would be greater on bicycles, or on foot, improvements could on bicyclists and pedestrians because it is more benefit low-income populations to a slightly difficult to detour with non-automated than with greater extent than the population as a whole. automated transportation modes. Some low- income individuals who cannot afford to drive Based on available racial and income data for the would be included in this group. direct study area; property values of impacted residences; results of employer and residential Alternative B surveys; and a review of feedback from the Alternative B would have the same impacts as public, it is not anticipated that residential Alternative A, unless the temporary detour displacements from any of the Build alternatives bridge option were selected. While the would result in disproportionate adverse impacts temporary detour bridge would benefit all bridge on minority and/or low-income populations. users, the reduction of out-of-direction travel distances would have greater benefits for The nine businesses in the Sellwood Building low-income individuals who travel on foot or would be displaced under all of the Build by bicycle. alternatives. Businesses in the Sellwood Building are small, with the number of employees ranging

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TABLE 3.8-3 Potential Residential Displacements Associated with Sellwood Bridge Alternatives Residential Households Alternative Structures Lost Displaced Description No Build 0 0 No displacements are included in the No Build Alternative A 1 1 One condominium in River Park development B 1 1 One condominium in River Park development C 1 1 One condominium in River Park development D 5 5 One condominium in River Park development Four condominiums in Sellwood Harbor development E 0a 6 Six residential units in Grand Place mixed-use development D Refined 5 5 One condominium in River Park development Four condominiums in Sellwood Harbor development a Alternative E has one mixed-use displacement containing six household units.

Alternative C Residential Displacements Alternative C would have the same impacts as The project team reviewed 2000 U.S. Census Alternative A, except that the bridge would be data, information from community and closed for 42 months during construction. stakeholder interviews, and available survey data Alternative D of affected property owners to identify any No specific environmental justice consequences minority or low-income populations that would are expected with Alternative D because the be impacted by residential or business river crossing for all modes would be maintained displacements caused by the Build alternatives. during construction, except for interim closures This information was used to assist in making the to replace the existing bridge and construct the final determination related to whether the new bridge. project would result in disproportionately high and adverse effects on minority and/or low- Alternative E income populations in the study area. No specific environmental justice consequences are expected with Alternative E because the river Table 3.8-3 summarizes potential residential crossing for all modes would be maintained displacements associated with each of the during construction. alternatives.

Alternative D Refined The project’s right-of-way impacts analyst mailed (Preferred Alternative) a survey to potentially affected residents and No specific environmental justice consequences property owners in the direct impact area. This are expected with Alternative D Refined because survey asked, among other things, for participants the river crossing for all modes would be to self-report race, ethnicity, and income status. maintained during construction, except for Insufficient responses were received to use these interim closures to replace the existing bridge survey findings. Assessed values of the affected and construct the new bridge. condominiums range between $420,000 and $650,000 (Sellwood Bridge Project Right-of-Way Technical Report [Real Property Consultants,

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2008; updated 2010]). These values are household income of $40,146 for the city of substantially higher than the $242,000 median Portland. This difference indicates that the overall housing price in the Portland metropolitan region incomes of the block group are higher than those (Standard and Poor, 2009). for the city as a whole.

Because the minority and low-income Based on available racial and income data for the information on the potential residential study area, property values of the impacted displacements was incomplete, the environmental residences, and information from the public justice analysts also reviewed 2000 U.S. Census outreach team, it is not anticipated that data for the area of the potential residential displacements from the Sellwood Bridge project displacements. The area for residential would result in adverse impacts on any displacements is relatively small; therefore, populations, including no disproportionately high Census block data were reviewed for racial and adverse impacts on minority and/or low- information. The relevant Census blocks for the income populations. area are in Census Tract 1, Block Group 7, Block 7020; Block Group 7, Block 7019; and Block Business Displacements Group 6, Block 6004. The total population of the Business displacements would range from 9 to three Census blocks containing the potential 48, depending on the Build alternative selected. residential displacements was 64. Of this total, Of the up to 48 businesses that could potentially the racial information reported indicated that 60 be displaced, 46 do not have specialized location were non-Hispanic Caucasian, 2 were Hispanic needs that would significantly limit their ability to Caucasian, and 2 were Asian American. The total find replacement locations. The one business that minority population was 6 percent. The minority reported they would not continue if relocated threshold established for the Portland-Vancouver was River Park Center (the property PMSA is 22.2 percent. Therefore, the minority management firm for the River Park Center percentage in the affected Census blocks is well building). None of the businesses that would be below that for the Portland-Vancouver PMSA displaced is uniquely important to minority or threshold. low-income populations; these businesses do not include businesses such as an ethnic grocery The U.S. Census Bureau does not report income store or food bank. Table 3.8-4 summarizes data on a Census block level; therefore, the potential business displacements associated with smallest Census geography for income each of the alternatives. information (block groups) was used. The block groups containing the potential residential The project’s right-of-way impacts analyst displacements are Census Tract 1, Block Groups conducted a survey of businesses that would be 6 and 7. Taken together, these block groups displaced by the project. This survey contained contain 19 percent low-income households and information about race and income status. The 11 percent very low-income households, below following list summarizes relevant information the Portland-Vancouver PMSA average of about each of the structures that would be lost 24.2 percent low-income households, but above under the various Build alternatives: the Portland-Vancouver PMSA average of  Sellwood Building. The nine businesses in 9.5 percent very low-income households. the Sellwood Building would be displaced Census data can also be used to obtain median under all of the Build alternatives. All income. The median household income for Block businesses in the Sellwood Building are small, Group 01.06 is $44,737 and for Block Group with the number of employees ranging 01.07 is $50,588, compared to the median between one and eight. The total number of

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employees potentially displaced in this low income. The property management firm building is 30. From the survey, three (River Park Center) was the only business at employees identified themselves as minority this location that reported it would not status and one self-identified as low income continue operation at a different location if (earning under $10,000 per year). This displaced by the Sellwood Bridge project. particular business reported that two of the three employees worked on a part-time  Grand Place. Grand Place is a mixed-use basis. building that is currently vacant. Two office spaces would potentially be displaced under  Riverside Corral. The Riverside Corral Alternative E. would be displaced by Alternative B (with temporary detour bridge only). The owner 3.8.4 Benefits self-reported as being non-minority. The There are no disproportionately high and adverse business did not report minority or income effects on environmental justice populations status of any of the 32 employees. among the Build alternatives. Benefits to minority and/or low-income populations are expected to  Staff Jennings Property. The Staff Jennings be consistent with benefits to the population as a property would be acquired by Alternative C. whole. However, the benefits of restored transit Staff Jennings, a commercial boat business service on the bridge and improvements to that formerly occupied this property, closed bicyclist and pedestrian facilities could affect in March 2010. low-income populations more than the larger  River Park Center. River Park Center population. would be displaced by Alternative E. The Restoration of Transit Service 37 businesses in the building employ 186 employees. Six employees were reported TriMet bus service has been discontinued over as minority; no employees were reported as the Sellwood Bridge and is not included in the No

TABLE 3.8-4 Potential Business Displacements Associated with Sellwood Bridge Alternatives Commercial Structures Businesses Alternative Lost Displaced Description No Build 0 0 No displacements are included in the No Build Alternative A 1 9 Nine businesses in Sellwood Building B 1 9 Nine businesses in Sellwood Building B/TDB 3 10 Nine businesses in Sellwood Building and Riverside Corral C 3 10 Nine businesses in Sellwood Building and the vacant Staff Jennings commercial boat business (closed March 2010) D 1 9 Nine businesses in Sellwood Building E 3a 48 Nine businesses in Sellwood Building, approximately 37 businesses in River Park Center, and two office spaces in Grand Place D Refined 1 9 Nine businesses in Sellwood Building a Alternative E also has one mixed-use displacement containing two vacant office spaces B/TDB = Alternative B with temporary detour bridge

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Build Alternative. Those relying on transit have the traveling public as a whole, they are likely to been required to cross the bridge in cars, on disproportionately benefit low-income individuals bicycles, or on foot, or to select a bus route (or a who are less likely to be able to afford the costs combination of several routes) that includes of automobile ownership and operation, and who out-of-direction travel over another bridge or may choose to walk or bike as an alternative through downtown Portland. Although the mode of transportation. It is not expected that reduction of travel time associated with renewed any Build alternative would have a substantially transit service across the Sellwood Bridge would greater benefit than another Build alternative in benefit the traveling public as a whole, improving bicyclist and pedestrian facilities. transportation surveys have consistently demonstrated that low-income individuals tend to 3.8.5 Summary of Alternatives by use public transit more frequently than do Differentiating higher-income individuals (Pisarski, 2006). It is Environmental Justice not expected that any Build alternative would have a greater benefit than another Build Impact alternative related to the restoration of There are no disproportionately high and adverse transit service. effects on environmental justice populations among the Build alternatives. Improved Bicyclist and Pedestrian Low-income populations could benefit more than Facilities the larger population from the Build alternatives Individuals relying on the Sellwood Bridge for that do not close the bridge during construction travel who do not have access to an automobile (Alternative B with the temporary detour bridge, and choose to walk or bike to their destinations Alternative D, Alternative E, and Alternative D are required to use the inadequate sidewalk on Refined [see Section 3.6, Economic]), the the bridge’s north side. Any of the Build restored transit service on the bridge (all Build alternatives would improve conditions for alternatives [see Section 3.1, Transportation]), bicyclists and pedestrians using the bridge. The and improvements to bicyclist and pedestrian conditions would not improve under the No facilities (all Build alternatives [see Section 3.2, Build Alternative. Although benefits of improved Bicyclists and Pedestrians]). bicyclist and pedestrian facilities would accrue to

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Parks and Recreation Summary 3.9 Parks and Recreation This section discusses existing park and The Build alternatives would permanently recreational facilities in the study area and acquire between 1.4 and 4.3 acres of parkland and impact a minimum of five and a impacts to these facilities. Bicyclist and pedestrian maximum of eight park and recreational impacts are addressed in Section 3.2, Bicyclists trail facilities. Mitigation and enhancement and Pedestrians. The Final Section 4(f) Evaluation, actions for these impacts have been appended to this document, discusses park and identified by coordinating with Portland recreational facility impacts in more detail. Parks & Recreation. The Federal Highway Administration approved the mitigation to park impacts in the Section 4(f) Evaluation. 3.9.1 Affected Environment The four parks and five recreational trail facilities located inside the study area are: the Willamette River, a disabled-access restroom,  Sellwood Riverfront Park a dog off-leash area, paved walking paths (including the Willamette Greenway Trail [East  Oaks Pioneer Park

 Powers Marine Park FIGURE 3.9-1 Park and Recreation Facilities  Willamette Moorage Park

 Springwater Corridor Trail

 Willamette Greenway Trail (SE Spokane Street Section)

 Willamette Greenway Trail (East Bank)

 Willamette Greenway Trail (West Bank)

 Sellwood Bridge Recreational Trail These facilities are shown on Figure 3.9-1.

Sellwood Riverfront Park Sellwood Riverfront Park is an 8.75-acre park located at SE Spokane Street and SE Oaks Park Way, just north of the Sellwood Bridge on the east bank of the Willamette River. The City of Portland owns and manages the park. Existing park facilities include a boat dock to

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Bank]), unpaved trails, picnic tables, a parking lot, is an active effort by the South Portland and an outdoor stage used for summer concerts Riverbank Project (a partnership of City of and movies. Portland and community organizations) to restore riverbank conditions and enhance the Sellwood Riverfront Park is a “hybrid park” with banks of the Willamette River. Park visitors use a both an open lawn and manicured section and a motorized boat ramp, which is located similarly sized natural area with a wooded immediately north of the park between the section, pond, and trails. A hybrid park is bridge and the Staff Jennings property but is not managed for both its recreational and natural part of the park. resource values. The park also offers important visual opportunities, with expansive views to the Willamette Moorage Park river, West Hills, and downtown Portland. Willamette Moorage Park is a 9.51-acre park that Oaks Pioneer Park is bordered by the Willamette River to the east, OR 43 to the west, Butterfly Park to the north, Oaks Pioneer Park is a 3.85-acre park located at and the Staff Jennings property to the south. The 455 SE Spokane Street. The City of Portland City of Portland owns and manages the park. The owns and manages the park. The park is the park shares an access point from OR 43 with setting for the Oaks Pioneer Church, which Macadam Bay Club. serves as an important location for many weddings and other ceremonies. There is a large Willamette Moorage Park functions primarily as lawn area with mature trees and shrubs around an open natural area intended to improve the the church and a rental property to the north. health of the Willamette River ecosystem. The The quiet setting for the church is an important park is the location of the Stephens Creek part of its value as a popular wedding location. Confluence Habitat Enhancement Project—a Weddings occur most often in the summer, but partnership effort between the City of Portland spring, fall, and the winter holidays are also and community groups to restore habitat for fish popular. listed as threatened under the Endangered Species Act, enhance riparian areas, remove Recreational improvements are limited to paved invasive species, and plant native species. walking paths. The primary function of the park is to provide a peaceful setting behind the Oaks This linear park provides some passive Pioneer Church located on the property. recreational opportunities, along with river access and some beach recreation. Existing park Powers Marine Park facilities include a boat dock (shared with Powers Marine Park is a 13.07-acre park located Macadam Bay Club), a parking lot, and a shared- east of SW Macadam Avenue in southwest use trail. (The Willamette Greenway Trail [West Portland that bounds the Willamette River for Bank] passes through the park.) approximately 0.85-mile in a linear north-south manner. The City of Portland owns and manages Springwater Corridor Trail the park. The access point to the park is The Springwater Corridor Trail is a shared-use immediately north of the existing Sellwood trail in southeast Portland. Metro owns the trail Bridge, between the bridge and the Staff Jennings and the City of Portland manages the trail within property. Portland city limits. The paved surface is generally 12 feet wide with soft shoulders. The trail is Powers Marine Park provides important natural designed to accommodate walkers, joggers, resources and passive recreational opportunities. hikers, bicyclists, and those in wheelchairs. The park is highly valued as a natural area. There Within the study area, the trail lies adjacent to an

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The following regulations protect park and recreational resources from transportation project actions: • Section 4(f) of the U.S. Department of Transportation Act (49 United States Code [U.S.C.] 3030). Commonly referred to as “Section 4(f),” this law is intended to preserve public park and recreation lands, wildlife and waterfowl refuges, and historic sites. Transportation projects may not use such resources unless: (1) there is no prudent and feasible alternative to using that land and (2) the project includes all possible planning to minimize harm to the resource. • Section 6(f) of the Land and Water Conservation Fund (LWCF) Act concerns transportation projects that propose impacts, or the permanent conversion, of

Parks and Recreation outdoor recreation property that was acquired or developed with LWCF Act grant Regulatory Protection assistance. Section 6(f) requires that replacement lands of equal value, location, and usefulness be provided as conditions to approval of land conversions. active (but lightly used) rail line, underpasses the Willamette Greenway Trail (East Bank) Sellwood Bridge, and terminates at SE Umatilla In 1988, the City of Portland adopted the Street, where an existing 0.9-mile gap in the trail Willamette Greenway Plan, where the stated goal exists. was “to protect, conserve, maintain, and enhance The Springwater Corridor Trail is the major the scenic, natural, historical, economic, and southeast segment of the Portland metropolitan recreational qualities of lands along the area’s 40-Mile Loop trail system. The trail itself Willamette River.” The plan carried out the extends far beyond the boundaries of the intentions of Oregon Planning Goal 15 Sellwood Bridge study area, connecting (Willamette River Greenway). A primary downtown Portland to several parks and open objective of the plan was “to create a continuous spaces, including Tideman Johnson Natural Area, recreational trail extending the full length on both Beggars-Tick Wildlife Refuge, the Interstate 205 sides of the Willamette River but not necessarily (I-205) Bike Path, Leach Botanical Garden, Powell adjacent to the river for the entire length.” Butte Nature Park, and Gresham’s Main City Currently, although the Willamette Greenway Park. Trail (East Bank) is not continuous, sections of the trail are in place, including sections located Willamette Greenway Trail inside the study area. (SE Spokane Street Section) On the east side of the river inside the study SE Spokane Street from SE 17th Avenue to the area, a designated section of the Willamette Willamette River is designated as a Primary Greenway Trail (East Bank) extends south from Greenway Trail on the City of Portland’s Sellwood Riverfront Park, passes under the Willamette Greenway Plan (1987) and as an Sellwood Bridge, and terminates at SE Umatilla Adopted Greenway in the Metropolitan Street. The City of Portland owns and manages Greenspaces Master Plan (Metro, 1992). This is an this trail. After a two-block gap, the trail on-street section of the Willamette Greenway continues between SE Tenino Street and SE Linn Trail with no improvements aside from standard Street. While the sections of the trail south of sidewalks and a paved street. The function of this SE Spokane Street are on private property, they section of the Willamette Greenway Trail is to are still a public recreational resource. The City provide a bicycle- and pedestrian-friendly of Portland has a trail easement to this section of connection to the main Willamette Greenway trail and manages this section of trail as part of Trail (East Bank). the overall public trail system.

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The Willamette Greenway Trail (East Bank)’s 3.9.2 No Build Alternative primary use is as a recreational trail for walking and biking. Aside from the paved trail itself, the Environmental only trail-related improvements are the disabled- Consequences access public restrooms located in Sellwood Under the No Build Alternative, existing travel Riverfront Park. patterns in the study area would be maintained. The Sellwood Bridge Recreational Trail would be Willamette Greenway Trail (West the only park or recreational facility impacted. Bank) The No Build Alternative would close the trail The Willamette Greenway Trail (West Bank) over the river for maintenance activities (6 to follows the west bank of the Willamette River. 8 months). Within the study area, the trail extends southward through Willamette Moorage Park; 3.9.3 Build Alternatives becomes a narrow paved sidewalk adjacent to OR Environmental 43 (separated by a chain-link fence); connects to Consequences the northern end of Powers Marine Park through Impacts and Mitigation Common to the parking lot adjacent to the Staff Jennings All Build Alternatives property; driveway, passes under the Sellwood Direct Impacts. All Build alternatives would Bridge; and eventually becomes a semi-improved have the following direct impacts: trail (gravel/dirt) as it passes through Powers Marine Park. The City of Portland owns and  Converting existing Powers Marine Park land manages the trail. to transportation use because of right-of-way requirements. Table 3.9-1 summarizes these The primary use of the Willamette Greenway impacts by Build alternative. Trail (West Bank) is as an active recreational bikeway and trail, although the trail also provides  Converting existing Willamette Moorage users access to natural areas along the Park land to transportation use because of Willamette River and recreation sites to the right-of-way requirements. Table 3.9-2 north and south. summarizes these impacts by Build alternative. Sellwood Bridge Recreational Trail The Sellwood Bridge is designated as a  Temporarily closing the Springwater recreational trail and is part of the Portland Corridor and Willamette Greenway (East metropolitan area’s 40-Mile Loop trail system. Bank) trails during dangerous overhead Recreational facilities are limited to a narrow, bridge work. Such closures would likely be paved, raised sidewalk along the westbound for no more than 1 to 2 hours. travel lane of the bridge and switchback  Converting approximately 0.30 mile of bicycle/pedestrian ramp on the west side of the existing Willamette Greenway Trail (West bridge. This facility serves as both a bikeway and Bank). a pedestrian path.  Increasing noise levels at Oaks Pioneer Park. Although noise levels would be expected to increase under all Build alternatives, the noise-level increase would be higher under Alternative B with the temporary detour bridge (during construction) and

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TABLE 3.9-1 Summary of Build Alternative Land Incorporation at Powers Marine Park Land Park Conversion Conversion Alternative (acres) (percent) Area Impacted A 1.57 12.0 Natural-area land; vehicular access B 2.15 16.5 Natural-area land; vehicular access B with 2.15 16.5 Natural-area land; vehicular access Temporary Detour Bridge C 1.46 11.2 Natural-area land; vehicular access boat ramp adjacent to park; motorized watercraft access D 2.11 16.1 Natural-area land; vehicular access E 0.76 5.8 Natural-area land; vehicular access D Refined 1.02 7.8 Natural-area land; vehicular access

TABLE 3.9-2 Summary of Build Alternative Land Incorporation at Willamette Moorage Park Land Park Conversion Conversion Alternative (acres) (percent) Area Impacted A 2.22 24.9 Natural-area land and wetlands; vehicular access B 1.75 19.6 Natural-area land and wetlands; vehicular access B with Temporary 1.75 19.6 Natural-area land and wetlands; vehicular access Detour Bridge C 2.86 32.1 Natural-area land and wetlands; vehicular access D 1.75 19.6 Natural-area land and wetlands; vehicular access E 3.05 34.2 Natural-area land and wetlands; vehicular access D Refined 0.35 3.9 Natural-area land; vehicular access

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Alternative E (during construction and Both Powers Marine Park and operation). Therefore, these Build Willamette Moorage Park have been alternatives are addressed separately later in the sites of restoration efforts this subsection. performed through collaboration of the City of Portland and local Powers Marine Park and Willamette Moorage community organizations. Restoration Park are primarily managed for their natural efforts have focused on enhancing off- habitat values. All Build alternatives would channel habitat for migrating fish and permanently reduce natural, and particularly improving the ecological health of the river and its banks. Efforts have been riparian, habitat along the Willamette River. focused on both the Willamette River and Stephens Creek. Indirect Impacts. There would be no indirect impacts common to all the Build alternatives. Because these parks have been sites of recent restoration efforts, after Mitigation. Mitigation actions would include the oordination at Local Parks distribution of the DEIS, the Sellwood Bridge project team consulted and following: coordinated with Portland Parks and Recreation (PP&R) and the Portland • Construct an approximately 0.30-mile-long, Bureau of Environmental Services to 18-foot-wide trail from the Macadam Bay identify other mitigation actions that Club north to SW Miles Street. The trail could be conducted at these two parks. would contain a 14-foot-wide surface with PP&R and Multnomah County have 2-foot-wide gravel shoulders on both sides of identified and agreed to mitigation and the paved trail. The trail would be aligned enhancement actions at Willamette parallel to the existing Willamette Shoreline Moorage Park and Powers Marine Park. These actions are documented in Trolley tracks between the Willamette this section. The Final Section 4(f) Moorage Park boundary and SW Miles Street

Mitigation and Enhancement C Evaluation, appended to this on City-owned right-of-way. After the trail document, discusses park and was constructed, the City of Portland would recreational facility impacts in more detail. assume ownership of the trail and would be responsible for all trail maintenance. Park that would include provision of a • Within Willamette Moorage Park, provide minimum of seven vehicle parking spaces. sloped, stepped, vegetated walls along the multi-use trail extending from the Sellwood • Provide seven parking spaces for Powers Bridge to the Macadam Bay Club to minimize Marine Park along the roadway to the Staff visual and aesthetic impacts to Willamette Jennings property. Moorage Park and provide structural support • Compensate PP&R at fair market value for and wildlife habitat, where feasible. the land within Powers Marine Park • Reach an agreement on the shared use of the incorporated into a transportation use. Portland Parks & Recreation (PP&R) parking • Provide a temporary detour for the lot adjacent to Willamette Moorage Park by Springwater Corridor Trail, including the having Multnomah County work with following elements, as necessary: Freeman Motors, and have Multnomah County work with PP&R to renegotiate the − Surfacing a detour trail lease. − Providing signage for a detour trail − Marking pavement • Design and implement a parking and pedestrian access plan for Powers Marine

3-124 Sellwood Bridge Project Final Environmental Impact Statement Parks and Recreation Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

• Provide a temporary detour for the Enhancement. Enhancement actions include Willamette Greenway Trail (East Bank), the following: including the following elements, as • Within Willamette Moorage Park, replace the necessary: existing Stephens Creek culvert under the − Surfacing a detour trail Willamette Shoreline Trolley tracks, the new − Providing signage for a detour trail multi-use trail, and Macadam Bay Club access − Marking pavement driveway with a fish-and-wildlife-friendly passage constructed according to Oregon Department of Fish and Wildlife standards. FIGURE 3.9-2 Figure 3.9-2 shows the location of this area. Willamette Moorage Park/Stephens Creek • Within Powers Marine Park, design and Mitigation Area and Powers Marine Park implement stream restoration in the area Mitigation Area—Preferred Alternative shown on Figure 3.9-2 (from the railroad (Alternative D Refined) tracks to the river) to provide off-river habitat for juvenile salmonids. The planting and stream restoration design would be prepared in coordination with PP&R and in accordance with applicable City of Portland development requirements.

Alternative-specific Impacts and Mitigation Alternative A Impacts to parks and recreational resources specific to Alternative A would include the following:

• Impacts to Sellwood Riverfront Park, including:

− Displacing approximately 10 parking spaces (roughly 0.38 acre of parkland) at Sellwood Riverfront Park for transportation use because of right-of- way requirements associated with the placement of piers for the bicycle/pedestrian bridge

− Removing and pruning trees in the park’s parking lot

• Impacts to Oaks Pioneer Park, including:

− Converting approximately 0.12 acre of parkland to transportation use because of right-of-way requirements associated

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with the placement of an abutment for access would be moved approximately the bicycle/pedestrian bridge 250 feet to the north.

 Removing and pruning trees Alternative B (with Temporary Detour Bridge)  Realigning maintenance access road Impacts to parks and recreational resources specific to Alternative B with a temporary detour  Detracting from the appeal of Oaks bridge would include the following (in addition to Pioneer Park as a site for events because the Alternative B impacts listed previously): of the presence of the bicycle/pedestrian bridge  Temporarily detracting from the appeal of Oaks Pioneer Park as a site for events  Closing the Sellwood Bridge trail resulting from proximity impacts (noise and connection over the Willamette River for visual) associated with the temporary detour 24 months during construction bridge.  Potentially realigning the park’s access road to Oaks Bottom Wildlife Refuge Alternative C Impacts to parks and recreational resources  Relocating vehicular access to Powers Marine specific to Alternative C would include the Park (the current access would be replaced following: with new access via an underpass connection  Impacts to Powers Marine Park, including: from OR 43)  Closing vehicular access to the park;  Relocating the existing vehicular access to motorists would need to park at Willamette Moorage Park (which is, also, the Willamette Moorage Park (or further access to Macadam Bay Club). The existing north at Willamette Park) and then access would be moved approximately access the park on foot or bicycle via the 250 feet to the north. Willamette Greenway Trail (West Bank)

Alternative B  Closing the boat ramp that abuts Powers Impacts to parks and recreational resources Marine Park and the adjacent fuel dock; specific to Alternative B would include the motorized watercraft owners who would following: normally use this ramp would be  Closing the Sellwood Bridge trail connection redirected to the boat ramp at over the Willamette River for 24 months Willamette Park (located approximately during construction. However, a bicyclist and 1 mile north) pedestrian connection over the river would  Closing the Sellwood Bridge trail connection be provided under the Alternative B with over the Willamette River for 42 months temporary detour bridge option. during construction.  Relocating vehicular access to Powers Marine  Increasing cut-through traffic and adding Park (current access to be replaced by a new vehicles to SE Spokane Street (Willamette access via an underpass connection from Greenway Trail [SE Spokane Street Section]) OR 43). because of the east-end connection (Grand  Relocating the existing vehicular access to Avenue extension). Willamette Moorage Park (which is, also, the access to Macadam Bay Club). The existing

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 Relocating the existing vehicular access to because of the east-end connection (signal at Willamette Moorage Park (which is, also, the SE 6th Avenue). access to Macadam Bay Club). The existing  Relocating vehicular access to Powers Marine access would be moved approximately Park (current access to be replaced by a new 250 feet to the north. access via an underpass connection from Alternative D OR 43). Impacts to parks and recreational resources specific to Alternative D would include the  Relocating the existing vehicular access to following: Willamette Moorage Park (which is, also, the access to Macadam Bay Club). The existing  Relocating vehicular access to Powers Marine access would be moved approximately Park (current access to be replaced by a new 250 feet to the north. access via an underpass connection from OR 43). Alternative D Refined (Preferred Alternative)  Increasing cut-through traffic and adding Impacts to parks and recreational resources vehicles to SE Spokane Street (Willamette specific to Alternative D Refined would include Greenway Trail [SE Spokane Street Section]) the following: because of the east-end connection (signal at  Relocating vehicular access to Powers Marine SE 6th Avenue). Park (the current access would be replaced  Relocating the existing vehicular access to by new access via an underpass connection Willamette Moorage Park (which is, also, the from OR 43). access to Macadam Bay Club). The existing  Relocating the existing vehicular access to access would be moved approximately Willamette Moorage Park (which is, also, the 250 feet to the north. access to Macadam Bay Club). The existing Alternative E access would be moved approximately Impacts to parks and recreational resources 300 feet to the north. specific to Alternative E would include the following: Mitigation Measures for Specific Alternatives  Detracting from the appeal of Oaks Pioneer Park as a site for events resulting from Because of additional park impacts, proximity impacts (noise and visual) supplementary mitigation measures would be associated with the Alternative E bridge needed for individual Build alternatives. structure.  Potential mitigation actions at Sellwood  Detracting from the appeal of Sellwood Riverfront Park would include the following: Riverfront Park as a recreational destination  Purchasing right-of-way (Alternative A resulting from proximity impacts (noise and bicycle/pedestrian bridge); real estate visual) associated with the Alternative E specialists would coordinate with PP&R bridge structure. to determine property needs and just  Increasing cut-through traffic and adding compensation based on the fair vehicles to SE Spokane Street (Willamette market value Greenway Trail [SE Spokane Street Section])

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 Constructing a non-motorized boat ramp  Installing noise barriers on the bridge in the vicinity of Sellwood Riverfront Park (Alternatives B [with temporary detour (Alternative C) bridge] and E)

 Planting trees and vegetation around the  Potential mitigation actions at Powers Marine bridge structure (Alternative E) Park would include the following:

 Installing noise barriers on the bridge  Installing signage directing motorists to (Alternative E) parking areas at Willamette Moorage Park or Willamette Park for access to  Replacing parking spaces on land adjacent Powers Marine Park (Alternative C) to the park (Alternative A)  Other potential mitigation actions specific to  Assisting in re-vegetating the riparian particular alternatives would include the zone with cottonwood trees following: (Alternatives A and E)  Installing signage at Willamette Moorage  Planting trees in parking lot Park and Willamette Park directing users (Alternative A bicycle/pedestrian bridge) to Powers Marine Park via the  Potential mitigation actions at Oaks Pioneer Willamette Greenway Trail (West Bank) Park would include the following: (Alternative C)

 Purchasing right-of-way (Alternative A  Providing detour signage for bicyclists bicycle/pedestrian bridge); real estate indicating the closest Willamette River specialists would coordinate with PP&R crossing with bicycle accommodations to determine property needs and just (Alternatives A, B, and C) compensation based on the fair market  Maintaining existing conditions or value installing a bicyclist/pedestrian-activated  Planting trees and vegetation around the signal at the SE Tacoma Street/SE 6th bridge structure and elsewhere in the Avenue intersection as the east-side park (Alternative A bicycle/pedestrian connection to minimize cut-through bridge) traffic on SE Spokane Street

 Relocating Oaks Pioneer Church after 3.9.4 Summary of Alternatives by securing a new location acceptable to Differentiating Park and PP&R and consulting with the Sellwood Recreation Impact Moreland Improvement League (SMILE) (Alternatives A, B [with temporary detour bridge], and E)

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TABLE 3.9-3 Summary of Impacts to Park and Recreational Facilities Park or Alt. B with Recreational Temporary Facility Alt. A Alt. B Detour Bridge Alt. C Alt. D Alt. E Alt. D Refined Sellwood Converting None None None None None (but new None Riverfront Park 0.38 acre of bridge parkland immediately next Removing 10 to park) parking spaces Removing approximately two trees Having bicycle/ pedestrian bridge cross over park Oaks Pioneer Converting None Having visual and None None Having visual and None Park 0.12 acre of noise impacts noise impacts parkland associated with associated with Dissecting temporary detour bridge structure park with bike/ bridge structure ped bridge structure Realigning park maintenance road Removing approximately two trees

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TABLE 3.9-3 Summary of Impacts to Park and Recreational Facilities Park or Alt. B with Recreational Temporary Facility Alt. A Alt. B Detour Bridge Alt. C Alt. D Alt. E Alt. D Refined Powers Marine Converting Converting Converting Converting Converting Converting Converting Park 1.57 acres of 2.15 acres of 2.15 acres of 1.46 acres of 2.11 acres of 0.76 acre of 1.02 acres of parkland parkland parkland parkland parkland parkland parkland Relocating Relocating Relocating access Closing access Relocating Relocating access Relocating access access access Closing boat access ramp and fuel dock (located adjacent to park) Willamette Converting Converting Converting Converting Converting Converting Converting Moorage Park 2.22 acres of 1.75 acres of 1.75 acres of 2.86 acres of 1.75 acres of 3.05 acres of 0.35 acre of natural natural area natural area natural area natural area natural area natural area areaa Relocating Relocating Relocating access Relocating Relocating Relocating access Relocating access access access Impacting access access Impacting Impacting Impacting wetlands Impacting Impacting wetlands wetlands wetlands wetlands wetlands Springwater Having Having Having temporary Having Having Having temporary Having temporary Corridor Trail temporary temporary closures; temporary temporary closures; closures; providing closures; closures; providing detours closures; closures; providing detours detours providing providing providing providing detours detours detours detours Willamette None None None Adding vehicles Adding vehicles Adding vehicles to None Greenway Trail to SE Spokane to SE Spokane SE Spokane Street (SE Spokane Street because Street because because of east- Street Section) of east-end of east-end end connection connection connection Willamette Having Having Having temporary Having Having Having temporary Having temporary Greenway Trail temporary temporary closures temporary temporary closures closures (East Bank) closures closures closures closures

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TABLE 3.9-3 Summary of Impacts to Park and Recreational Facilities Park or Alt. B with Recreational Temporary Facility Alt. A Alt. B Detour Bridge Alt. C Alt. D Alt. E Alt. D Refined Willamette Reconstructing Reconstructing Reconstructing Reconstructing Reconstructing Reconstructing Reconstructing Greenway Trail 0.30 linear 0.30 linear mile 0.30 linear mile of 0.30 linear mile 0.30 linear mile 0.30 linear mile of 0.30 linear mile of (West Bank) mile of trail of trail trail of trail of trail trail trail Sellwood Bridge Closing bike/ Closing bike/ None (providing Closing bike/ None (providing None (providing None (providing Recreational ped facility ped facility over bike/ped ped facility over bike/ped bike/ped bike/ped Trail over river river during accommodations river during accommodations accommodations accommodations during construction across river) construction across river) across river) across river) construction Total 4.3 acres 3.9 acres 3.9 acres 4.3 acres 3.9 acres 3.8 acres 1.4 acres Parkland and Natural Area to be Converted Total Park 8 facilities 6 facilities 6 facilities 7 facilities 6 facilities 7 facilities 5 facilities and Recreational Facilities to be Impacted a An additional 0.74 acre would be converted from one park use to another park use for mitigation (bicycle/pedestrian trail).

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3.9.5 Section 6(f) Section 6(f) Impact The Land and Water Conservation Fund (LWCF) Alternative A would result in a conversion of Act of 1965 established grants-in-aid funding to parkland to transportation use at Sellwood assist states in the planning, acquisition, and Riverfront Park. Approximately 10 of the park’s development of outdoor recreational land and parking stalls would be incorporated by the water areas and facilities. Section 6(f) of the project to provide adequate space for the LWCF Act prohibits the conversion of property placement of bicycle/pedestrian bridge piers. acquired or developed with the assistance of the Approximately two trees would also be removed. fund to anything other than public outdoor There is no Section 6(f) impact to Sellwood recreation use without the approval of the Riverfront Park from Alternatives B, B (with Secretary of the Department of the Interior. temporary detour bridge), C, D, E, or D Refined. Sellwood Riverfront Park is the only property protected under Section 6(f) in the Sellwood Mitigation Bridge Project area of potential effect (APE). In accordance with the Section 6(f) statute, mitigation for Alternative A impacts would According to the National Park Service, Sellwood include, but would not be limited to, the Riverfront Park was approved for funding from following: the LWCF on two separate occasions—the park was awarded $79,129 on August 8, 1983, and  Replacing parking spaces in the immediate $80,317 on December 6, 1984. Because Sellwood vicinity of the park Riverfront Park has received LWCF grant money,  Assisting in re-vegetating the riparian zone the park is protected under Section 6(f) of the with cottonwood trees (from the water line LWCF Act. Section 6(f) requires that lands to the Willamette Greenway Trail [East acquired for right-of-way purposes must be Bank]) replaced with other property of at least equal fair market value and of reasonably equivalent usefulness and location.

3-132 Sellwood Bridge Project F i n a l Environmental Impact Statement Archaeological and Historic Resources Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

3.10 Archaeological and Archaeological and Historic Resources Historic Resources Summary The Build alternatives would have direct 3.10.1 Affected Environment impacts (adverse effect) on the River View Archaeological Resources Cemetery and the Sellwood Bridge. The Build alternatives would have direct and Archaeological sites are places where past indirect impacts (adverse effect) on the River peoples left physical evidence of their occupation. View Cemetery Superintendent’s House. Sites may include ruins and foundations of The Build alternatives would not have direct historic-era buildings and structures. Sites also or indirect impacts (no adverse effect) on the Willamette Shoreline Trolley alignment may include surface ruins and underground or Oaks Pioneer Church. deposits of prehistoric or Native American occupation debris such as artifacts, food remains (shells and bones), and former dwelling (Figure 3.10-1). However, there is the potential structures. for such sites to exist beneath the veneer of surface streets and modified landscapes. There Although the greater Portland Basin has been the was considerable 19th- and early 20th-century subject of a fair amount of archaeological development along the waterfront, particularly on research, no archaeological resources have been the east side of the river where Sellwood was recorded in the archaeological area of potential established. resources effect established for the project

FIGURE 3.10-1 Area of Potential Resources Effect and Historic Resources

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Historic maps indicate the northwest quadrant of conclusions. The SHPO concurrence letter is Spokane Avenue was the site of East Side Mill and provided in Appendix H. Lumber Company Saw Mill, and the southwest Figure 3.10-1 illustrates the locations of quadrant was the site of the Oregon Door properties listed in Table 3.10-1. Company factory. There is the potential for archaeological deposits associated with both of Oaks Pioneer Church these early Sellwood companies. The Sellwood Facing southeast at the corner of SE Spokane Ferry Landing was at the west end of SE Spokane Street and SE Grand Avenue, the Oaks Pioneer Street. The west-side landing for the ferry was Church, formerly St. John’s Episcopal Church located at the current Staff Jennings property. located in Milwaukie, Oregon, was listed on the Archaeological deposits associated with these National Register in 1974. The National Register landings, and their associated docks, could still nomination states that St. John’s Church was the exist. The heavily developed and modified first Episcopal church and is the oldest intact landscapes at each end of the existing bridge may church building in Oregon; it also once served as obscure existing buried archaeological resources, the cathedral seat of the Episcopal Diocese of of both prehistoric and historic origins. Oregon. In 1862, the building was moved within the town of Milwaukie. The most significant Historic Properties alterations were made in 1888, at which time the The National Register of Historic Places building was given its present Gothic Revival (National Register) is a federally maintained list of character. The building was temporarily moved in districts, sites, buildings, structures, objects, and 1928 within Milwaukie. In 1959, the church was landscapes significant in American history, to be razed, but private efforts secured funding to prehistory, architecture, archaeology, float it by barge down the Willamette River to its engineering, and culture. present site. Cultural resources analysts surveyed historic resources that might be 50 or more years old by the time the project would be built. The analysts identified and evaluated literature about historic resources; collected existing data, including archival records, historic photographs, and maps; and analyzed these data to assess the eligibility of these properties for listing in the National Register. The survey revealed one property listed in and four properties eligible for the National Register (Table 3.10-1). The Oregon State Historic Preservation Office (SHPO) was consulted and, on July 31, 2008, concurred with these Sellwood Bridge Vicinity, 1924.

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TABLE 3.10-1 Properties Listed or Determined Eligible for the National Register of Historic Places National Register of Historic Places Location Property Name Constructed Determination and Reasons for Eligibility 455 SE Spokane Oaks Pioneer Church, circa 1851 Listed in 1974: Street formerly St. John’s • Important for its association with events Episcopal Church relating to the establishment of the Episcopal Church in western Oregon • Period of significance is from 1883 (Neo- Gothic architectural style) to 1928 (new foundation and basement) Willamette River Sellwood Bridge 1925 Eligible: • Only four-span continuous-deck truss in Oregon (a rare bridge type) • Demonstrates the application of a common bridge type in an unusual way • Work of one of the most significant bridge engineers of the late 19th and early 20th centuries OR 43 (SW River View Cemetery Established Eligible: Macadam Avenue) 1882 • One of the oldest cemeteries in the City of Portland • Contains the remains of persons who are considered important in the city in the late 19th century • Displays distinctive design elements associated with the rural cemetery movement of the late 19th century 8421 SW Macadam River View Cemetery 1914 Eligible: Avenue (OR 43) Superintendent’s House • Represents a stylistic achievement by the architect. The house is considered the work of a master. • High-artistic-value structure and displays distinctive characteristics that evoke the Neo-Georgian style of residential architecture • Contributing feature of National Register-eligible River View Cemetery West bank of river Willamette Shoreline 1914 Eligible: Trolley • Part of the transportation network that connected Portland and larger communities with smaller Willamette Valley towns • The interurban railroad strongly influenced growth and development of the outer suburbs south and west of Portland

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The church is listed on the National Register for The Sellwood Bridge is eligible for listing on the the following reasons: National Register for the following reasons:

• The church is important for its association • The Sellwood Bridge is a rare bridge type, with events relating to the establishment of both at the local level and within Oregon. It the Episcopal Church in western Oregon. is the only four-span continuous-deck truss in The building is no longer in use as an Oregon, as well as one of just a handful of Episcopal Church, and is no longer owned by continuous-deck truss bridges in Oregon. the Episcopal Church or any other religious organization. It is operated by the local neighborhood association (Sellwood Moreland Improvement League [SMILE]) and is located at the Oaks Pioneer Church and Park, administered by Portland Parks & Recreation.

• The church’s period of significance is from 1883 (Neo-Gothic architectural style) to 1928 (new foundation and basement). The church is an excellent example of this style of architecture. The building has suffered some loss of integrity due to changes it has experienced over time, though these changes occurred before the building was listed on the National Register.

Sellwood Bridge The Sellwood Bridge, designed by Gustav Lindenthal, was officially dedicated on December 15, 1925, and replaced the Spokane Oaks Pioneer Church. Street Ferry. The bridge is a fixed- span bridge consisting of a four-span Existing Sellwood Bridge. continuous truss. Its eastern terminus falls at the intersection of SE 6th Avenue and SE Tacoma Street and its western terminus is roughly OR 43 at River View Cemetery.

The bridge was the first built in Portland across the Willamette River without a moveable span. It was also the first bridge in Portland built without trolley tracks. The steel-plate girder spans at the truss ends were reused from the 1894 Burnside Bridge.

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• The other continuous-truss bridges were The cemetery is characterized by a narrow road built between 1929 and 1950, making the system that follows the natural ridges and curves Sellwood Bridge the oldest of this type of of the land, a variety of large and small trees and construction. shrubs that may have been selectively planted, and views across the river toward Sellwood and • The application of a common bridge type is the neighboring communities. Most of the burials demonstrated in an unusual way, increasing are located on the hillside above OR 43, with the the number of spans from two or three to oldest ones located toward the center of the four, in order to achieve an artistic effect. cemetery, near the mausoleum. The cemetery is considered locally significant and it was entered • Gustav Lindenthal (one of the most significant bridge engineers of the late 19th and early into the City of Portland Historic Resource 20th centuries) designed this bridge. He Inventory (HRI) circa 1982; it is eligible for listing prepared design plans for five Portland-area in the National Register. bridges in less than 5 years, but the Sellwood River View Cemetery is eligible for the National Bridge was his first, and it is the longest and Register for the following reasons: the only four-span truss bridge he designed in Portland. • With the origins of its establishment in the early 1880s, River View Cemetery is one of River View Cemetery the oldest cemeteries in the City of Portland. River View Cemetery, established in 1882, is It also contains the remains of persons who located on the west side of the Willamette River, are considered important in the history, approximately 3 miles south of downtown politics, and social landscape of the city in the Portland. The cemetery is approximately late 19th century. 300 acres in size and is bounded on the north by SW Taylors Ferry Road and on the east by • The cemetery displays distinctive design OR 43. There are two entrances, one located off elements associated with the rural cemetery OR 43, just a few feet from the western end of movement of the late 19th century, as the Sellwood Bridge, and another on SW Taylors exemplified through its architecture, Ferry Road. landscape architecture, and associated monuments. River View Cemetery and Superintendent’s House. Elements that contribute to the significance of the River View Cemetery include, but are not limited to, the Superintendent’s House (discussed subsequently); the cemetery gate(s); the River View Chapel, Mausoleum, and office; the rock-lined gutters; and the curvilinear road system.

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Superintendent’s House at the River View characteristics that evoke the Neo-Georgian Cemetery style of residential architecture. The River View Cemetery Superintendent’s House was constructed in 1914. The • The Superintendent’s House is a contributing Neo-Georgian-style structure replaced a 19th feature of National Register-eligible River century building constructed in the Gothic View Cemetery. Revival style. Willamette Shoreline Trolley The choice of architects and designers indicated The Southern Pacific Railroad Red Electric the founders’ intent that the cemetery reflect the Eastside Line, known locally as the Willamette “architectural splendor of their city.” The Shoreline Trolley, is part of a railroad corridor in Superintendent’s House was designed by Ellis F. the Willamette Valley. It comprises the east side Lawrence, a prominent and prolific architect who of a loop that ran between downtown Portland, practiced his craft in Portland in the early Lake Oswego, Yamhill County, Hillsboro, and decades of the 20th century. Beaverton. In 1887, the Portland & Willamette Valley Railroad opened its steam lines in western The Superintendent’s House is considered locally Oregon, which created a loop that served many significant and is eligible for the National Register communities south and west of Portland. After for the following reasons: 1929, however, Southern Pacific abandoned its interest in streetcars in Portland and used the • The structure is a stylistic achievement by line for freight service until 1983. Since 1987, the Lawrence and is considered a prime example Willamette Shoreline Trolley has provided of its style and is unique compared to seasonal excursion service between Portland and Lawrence’s other surviving designs locally and Lake Oswego on two historic trolley cars. The within the state. Oregon Electric Railway Historical Society has • The building is considered to have high operated the trolleys since 1995. artistic value. It displays those distinctive

River View Cemetery Superintendent’s House.

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A portion of the line still lies between OR 43 and 3.10.3 Build Alternatives the Willamette River from southwest Portland to Lake Oswego. Two important contributing Environmental features in this segment, the Elk Rock Tunnel and Consequences the Riverwood Trestle, remain intact. Both of Impacts and Mitigation Common to these features are outside the study area for this All Build Alternatives project. Cultural resources are assessed using the The Southern Pacific Railroad Red Electric terminology and hierarchy of adverse effect, no Eastside Line retains integrity of location, design, adverse effect, and no effect. These terms apply setting, feeling, and association for its period of to the characteristics that make them eligible for significance, 1914 to 1929. It is potentially eligible the National Register. NEPA uses the impact for the National Register for the following categories of direct, indirect, and cumulative reasons: impacts. These two systems of impact assessment are similar, but not identical. An indication in this • It was part of an important transportation section that there is no direct or indirect impact network that connected Portland with its indicates that there is no adverse effect to the hinterland; it was also a vital link in characteristics that make the property eligible for connecting the larger communities with the National Register, though there may be an smaller towns in the Willamette Valley. impact to the property itself.

• The interurban railroad was a strong In that context, none of the Build alternatives influence in the growth and development would have direct or indirect impacts (adverse (and the physical shaping) of the outer effect) on the Oaks Pioneer Church or suburbs south and west of Portland, like Willamette Shoreline Trolley alignment. The Tigard, Hillsboro, and Beaverton, because the Oaks Pioneer Church would be impacted by construction of roads and highways to and noise, but this would not affect the status derived around those communities would follow the from its architectural and historical significance, existing railroad alignments. so from a cultural perspective, there would be no adverse effect. Likewise, the Willamette Shoreline 3.10.2 No Build Alternative Trolley alignment would be moved to the east. Environmental However, moving the alignment would not Consequences impact the significant features that make the Willamette Shoreline Trolley eligible for the The No Build Alternative would have no adverse National Register, so that there would be no effect on the Oaks Pioneer Church, the adverse effect. Superintendent’s House, River View Cemetery, or the Willamette Shoreline Trolley alignment. Archaeological sites are not currently known to exist in the area of potential effect of any of the Maintenance activities under the No Build Build alternatives. Alternative E, because it would Alternative are not planned to retain the historic be constructed on a footprint not already deeply quality of the bridge. The No Build Alternative disturbed by previous bridge construction, is would have an adverse effect on the Sellwood marginally the most likely to affect currently Bridge if the bridge were allowed to deteriorate undetected archaeological deposits. through neglect. Archaeological explorations detected no archaeological resources that would be impacted by right-of-way expansion in Powers Marine Park,

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River View Cemetery, the Sellwood Harbor effect due to a change in physical features within Condominium grounds, and the grounds of the the property’s setting that contribute to its Sellwood Building. historic significance. Direct Impacts. The Build alternatives would Indirect Impacts. Indirect impacts would occur have adverse effects to the River View Cemetery, if construction and operation create changes in the Superintendent’s House, and the Sellwood current conditions that could result in adverse Bridge. effects to archaeological or historic resources. The Build alternatives would require the The Build alternatives would have indirect acquisition of land from River View Cemetery impacts to the Superintendent’s House. Specific along OR 43 north and south of the indirect impacts are described for each Superintendent’s House. Although the actual alternative. None of the Build alternatives would acquisition of land from the cemetery would be have indirect impacts to River View Cemetery, small, the removal of any property associated the Sellwood Bridge, Oaks Pioneer Church, or historically with the cemetery would constitute the Willamette Shoreline Trolley alignment. an adverse effect because of a change in the Mitigation. The following mitigation would be character of the historic property’s use and to implemented for archaeological resource impacts: the physical features within the property’s setting that contribute to its historic significance.

Properties that are eligible for the National Register of Historic Places are assessed for impact by application of the following categories: No Effect, No Adverse Effect, and Adverse Effect. Adverse effects on historic properties include, but are not limited to: (i) Physical destruction of or damage to all or part of the property (ii) Alteration of a property, including restoration, rehabilitation, repair, maintenance, stabilization, hazardous material remediation and provision of handicapped access, that is not consistent with the Secretary’s Standards for the Treatment of Historic Properties (36 Code of Federal Regulations [CFR] Part 680 and applicable guidelines) (iii) Removal of the property from its historic location (iv) Change in the character of the property’s use or of physical features within the property’s setting that contribute to its historic significance (v) Introduction of visual, atmospheric or audible elements that diminish the integrity of the property’s significant historic features

Examples of Adverse Effects (vi) Neglect of a property which causes its deterioration, except where such neglect

(from 36 CFR Part 800.5[a][2]) and deterioration are recognized qualities of a property of religious and cultural According to Federal Regulations significance to an Indian tribe or Native Hawaiian organization (vii) Transfer, lease, or sale of property out of federal ownership or control without adequate and legally enforceable restrictions or conditions to ensure long-term preservation of the property’s historic significance

The realignment of the access road to the • Prepare and implement a data recovery plan Superintendent’s House and the widening of to direct retrieval and analysis of information OR 43 would bring the road closer to the from National Register-eligible sites within historic property. This would have an adverse the area of ground disturbance. Although

3-140 Sellwood Bridge Project Final Environmental Impact Statement Archaeological and Historic Resources Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

discovery protocols would be implemented, • In the unlikely event that human remains active archaeological monitoring of such were discovered during project construction, project-related ground disturbance areas implement the proper protocol for such a would be undertaken by a qualified discovery, as follows: archaeologist, as described in 36 Code of Federal Regulations (CFR) Part 61. − Immediately stop work in the area of the discovery and secure the area. • Include stipulations in the project’s construction contracts. All Multnomah − Contact the Multnomah County Sheriff’s County employees and all Multnomah County Office and Medical Examiner, the Oregon contractors and subcontractors would follow State Archaeologist, the Multnomah these stipulations should any archaeological, County project manager, and the historic, or paleontological resources be Multnomah County archaeologist. discovered during construction of the − If the discovery were determined not to project. These stipulations would likely be European-American, notify the tribal include the following: representatives of the Confederated − Immediately suspend construction Tribes of Siletz Indians and the operations in the vicinity of the discovery Confederated Tribes of the Grand Ronde if a suspected historic, archaeological, or Indians, along with the Oregon State paleontological item, feature, prehistoric Museum of Anthropology. dwelling site, or artifact of historic or − If the remains were determined to be archaeological significance is Native American, have the Tribes, SHPO, encountered. and Multnomah County confer related to − Notify the responsible FHWA and an appropriate course of action. ODOT personnel and SHPO as soon as Mitigation measures for impacts to the historic possible of the nature and exact location resources would include, but not be limited to, of the discovery. the following: − Consult with a qualified historian or • Abiding by Historic American Building archaeologist to advise FHWA, ODOT, Survey/Historic American Engineering Record and SHPO regarding the significance and (HABS/HAER) Level III documentation recommended disposition of the standards for the River View Cemetery and discovery. the Superintendent’s House at River View − Protect the discovered objects from Cemetery. damage, theft, or other harm prior to • Salvaging materials from the Sellwood Bridge contacting the responsible personnel and preserving dedication plaques for from FHWA, ODOT, and SHPO. reinstallation at a later time. − Consult with SHPO in accordance with 36 CFR 800.13(b) toward developing and Alternative-specific Impacts and implementing an appropriate treatment Mitigation plan prior to resuming construction. Alternative A Multnomah County would not resume Direct Impacts. Alternative A would directly construction until SHPO had agreed to impact the Sellwood Bridge, the River View that resumption. Cemetery, and the Superintendent’s House.

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Rehabilitation of the existing Sellwood Bridge than existing conditions and, therefore, would would be an adverse effect because it would have the potential to introduce visual elements remove the approach spans, the original deck, the that would diminish the integrity of the floor beams, and the railing. These features property’s significant features. contribute to the significance of the bridge and Mitigation. Any proposed rehabilitation of the the loss of these original elements would diminish bridge would require the application of The the integrity of the bridge. In addition, the Secretary of the Interior’s Standards for the widening of the bridge through the addition of Treatment of Historic Properties (National Park truss spans to either side of the existing span and Service, 1995), and SHPO would have to approve the widening of the piers would be considered an any proposed action. However, it is not likely adverse effect. that the rehabilitation effort would meet the Alternative A would include the acquisition of standards to maintain the bridge’s eligibility approximately 3.6 acres from River View status. Cemetery along OR 43 north and south of the The following mitigation is proposed for impacts Superintendent’s House. The area impacted is to the River View Cemetery and occupied by the access road to the cemetery, Superintendent’s House: casual landscaping, and parking for the Superintendent’s House. The access road creates • Before removal and relocation, the cemetery a formal entrance effect for the cemetery. gates would be documented according to Although the actual acquisition of land from the HABS/HAER Level III standards. cemetery is small, the removal of any property Documentation and relocation should meet associated historically with the cemetery would all possible planning requirements to constitute an adverse effect, as it would change minimize harm to the gates. It is assumed that the character of the historic property’s use and the gates would be moved to a new main its setting, which contribute to its historic entrance. Appropriate-level HABS/HAER significance. Widening of the OR 43 interchange recordation for the Superintendent’s House would also necessitate the relocation of two and River View Cemetery would be contributing elements of River View Cemetery: determined and completed prior to the cemetery gates and the southern entrance construction, and documentation would be road at OR 43. This would be an adverse effect prepared. because it would change the character of the property’s use and change physical features • A National Register nomination would be within the property’s setting that contribute to its prepared for the River View Cemetery. historic significance. It is not known at this time if • A landscaping plan, created in coordination these gates would be moved to a new location or with River View Cemetery staff, qualified demolished. cultural resource specialists, and registered landscape architects with experience in Alternative A would require a change in the historic landscapes, would be prepared to alignment of the access road to the minimize the effect of the loss of land along Superintendent’s House. This would have an OR 43, which is anticipated in all Build adverse effect on the building because of a change alternatives. This would include replanting of in physical features within the property’s setting appropriate trees, shrubs, and other plants that contributes to its historic significance. found at the cemetery. Enhancements to the landscape would include a planting screen to Indirect Impacts. The west-side interchange minimize visual impacts related to the would be closer to the Superintendent’s House widening of OR 43 near the Superintendent’s

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House. Additionally, any foliage removed for cemetery would constitute an adverse effect, as it the realignment of the access road to the would change the character of the historic Superintendent’s House would be replaced in property’s use and its setting, which contribute to kind. its historic significance. Additionally, this • New signage would direct the visitors to the alternative would require the relocation of two Superintendent’s House, and would explain contributing elements of the River View the significance of the historic property. Cemetery: the cemetery gates and the southern entrance road at OR 43. This would constitute an Alternative B adverse effect because it would cause a change in Direct Impacts. This alternative would have the character of the property’s use and to the same direct impacts as Alternative A to the physical features within the property’s setting Sellwood Bridge, the River View Cemetery, and that contribute to its historic significance. It is not the Superintendent’s House. The area impacted is known, at this time, if these gates would be occupied by the access road to the cemetery, moved to a new location or demolished. casual landscaping, and parking for the Superintendent’s House. The access road creates This alternative would remove the entrance road a formal entrance effect for the cemetery. at OR 43 leading to the Superintendent’s House in River View Cemetery. Unlike the other Build Indirect Impacts. This alternative would have alternatives, no replacement access would be the same indirect impacts as Alternative A to the provided under Alternative C. The River View Superintendent’s House. Cemetery administration has stated that if the Mitigation. Mitigation proposed is the same as access were closed, they would cease using the that proposed for Alternative A. Superintendent’s House as a funeral home, leaving its use and commitment to its care in Temporary Detour Bridge Option question. The access closure would be an adverse There would be no additional direct or indirect effect to the Superintendent’s House because it impacts with the optional temporary detour would change physical features within the bridge. property’s setting (such as the location of the entrance columns and the road itself) that Alternative C contribute to the historic significance of the Direct Impacts. This alternative would require Superintendent’s House. Furthermore, this would the demolition of the Sellwood Bridge, which constitute an adverse effect on the River View would be an adverse effect because it would Cemetery, as closure of this entrance would cause the physical destruction of a historic change the elements of the historic setting, property. design, and feeling, which are aspects of integrity Alternative C would include the acquisition of that convey the historic significance of the approximately 2.1 acres from River View cemetery. Cemetery along OR 43 north and south of the Indirect Impacts. Visual elements, such as Superintendent’s House. The area impacted is retaining walls for the west-side interchange, are occupied by the access road to the cemetery, most prominent with Alternative C and would casual landscaping, and parking for the change the historical setting of the Superintendent’s House. The access road creates Superintendent’s House, which could diminish the a formal entrance effect for the cemetery. integrity of the property’s significant historic Although the actual acquisition of land from the features. These retaining walls could block the cemetery would be small, the removal of any view of the road and river from the property. property associated historically with the

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Mitigation. Proposed mitigation measures for Sellwood neighborhood. These panels would Alternative C include the following for impacts to be placed on or near the bridge. the existing Sellwood Bridge: The following mitigation is proposed for impacts • Review the existing Willamette River Bridges to the River View Cemetery and the HAER (OR-55) to determine whether Level I Superintendent’s House: documentation was prepared, specific to • Permanently remove the cemetery gates Sellwood Bridge. If not, this would be from their location at the cemetery entrance accomplished prior to the demolition of the on OR 43 and place them at the cemetery bridge. Copies of the report would be entrance on SW Palatine Hill Road, with an disseminated to the Central and Sellwood- interpretive panel explaining the relocation Moreland branches of the Multnomah County and with images on the panel showing their Library system, as well as to the City of original setting and location. Portland, ODOT, and SHPO. • Design any proposed retaining walls or sound • Assess bridge materials to determine what walls associated with the bike/pedestrian materials, if any, are salvageable and could be underpass and the removal of the entrance made available to interested parties. A list of road to assimilate with the surrounding potential interested parties would be landscape, and do not construct the walls to prepared in advance of any proposed salvage a height that would obscure the viewshed to or advertisement thereof. and from the Superintendent’s House • Offer truss spans for reuse at an alternate towards the river. location(s). Advertisements would be placed in appropriate media outlets such as in Alternative D Direct Impacts. Alternative D would have newspapers, in trade magazines, and on the adverse effects similar to those of Alternative C Internet. The offer would run for 3 months. for the Sellwood Bridge and similar to those of • Prepare a detailed study of truss bridges in Alternative B for the River View Cemetery and Multnomah County, and a regional survey and the Superintendent’s House (approximately evaluation of bridges of this type. 3.6 acres would be acquired from River View Cemetery). The area impacted is occupied by the • Support a new Web site that would provide access road to the cemetery, casual landscaping, information about the historic bridges in the and parking for the Superintendent’s House. The area. This Web site would be made available access road creates a formal entrance effect for to the City of Portland and the Multnomah the cemetery. However, Alternative D would County Web sites that link to the ODOT provide access to the cemetery from the Web site. interchange, whereas Alternative C would not. • Clean, treat, and store the existing dedication Indirect Impacts. Due to the wider OR 43 plaques until completion of the new bridge. interchange, Alternative D could introduce visual Install the existing plaques at a location near elements that would diminish the integrity of the east end of the bridge alongside new significant features of the Superintendent’s interpretive panels (see next bullet). House. • Create interpretive panels to explain the Mitigation. Proposed mitigation measures for history of river crossings in the immediate Alternative D for the Sellwood Bridge are the area, as well as discuss the history of the same as those for Alternative C.

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For Alternative D, the following mitigation is Alternative E proposed for impacts to the River View Direct Impacts. This alternative would have Cemetery and the Superintendent’s House: adverse effects similar to those of Alternatives C and D to the Sellwood Bridge, River View • Before removal and relocation, document the Cemetery, and the Superintendent’s House. cemetery gates according to HABS/HAER Approximately 3.4 acres would be acquired from Level III standards. Documentation and River View Cemetery. The area impacted is relocation should meet all possible planning occupied by the access road to the cemetery, requirements to minimize harm to the gates. casual landscaping, and parking for the It is assumed that the gates would be moved Superintendent’s House. The access road creates to the new entrance on SW Palatine Hill a formal entrance effect for the cemetery. Road. Appropriate-level HABS/HAER recordation for the Superintendent’s House Indirect Impacts. Indirect impacts would be and River View Cemetery would be the same as those for Alternative D. determined and completed prior to Mitigation. Mitigation proposed is the same as construction, and documentation would be that proposed for Alternative D. prepared. Alternative D Refined • Prepare a National Register nomination for (Preferred Alternative) the River View Cemetery. Direct Impacts. Alternative D Refined would • Prepare a landscaping plan, created in require the demolition of the Sellwood Bridge, coordination with River View Cemetery staff, which would be an adverse effect because it qualified cultural resource specialists, and would cause the physical destruction of a historic registered landscape architects with property. experience in historic landscapes, to minimize Alternative D Refined would acquire the effect of the loss of land along OR 43 approximately 4.0 acres from River View (which is anticipated in all Build alternatives). Cemetery along OR 43 north and south of the This would include replanting of appropriate Superintendent’s House. The area impacted is trees, shrubs, and other plants found at the occupied by the existing access road to the cemetery. The Portland Plant List would be cemetery, casual landscaping, and parking for the consulted to avoid planting any non-native Superintendent’s House. The access road creates vegetation that might self-seed into nearby a formal entrance effect for the cemetery. natural areas. Enhancements to the landscape Although the actual acquisition of land from the would include a planting screen to minimize cemetery would be small, the removal of any visual impacts related to the widening of OR property associated historically with the 43 near the Superintendent’s House. cemetery would constitute an adverse effect, as it Additionally, any foliage removed for the would change the character of the historic realignment of the access road to the property’s use and its setting, which contribute to Superintendent’s House would be replaced its historic significance. Widening of the OR 43 in kind. interchange would also necessitate the relocation of two contributing elements of River View • Create and place new signage that would direct the visitors to the Superintendent’s Cemetery—the cemetery gates and the southern House and explain the significance of the entrance road at OR 43. This would be an historic property. adverse effect because it would change the character of the property’s use and change

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physical features within the property’s setting Indirect Impacts. The west-side interchange that contribute to its historic significance. would be closer to the Superintendent’s House than existing conditions. Therefore, it would have Realignment of the roadway providing access to the potential to introduce visual elements that River View Cemetery, Powers Marine Park, and would diminish the integrity of the property’s the Staff Jennings property would change the significant features. visual impact of the project to the historic Superintendent’s House. Rather than crossing in Mitigation. Multnomah County, ODOT, and front of the Superintendent’s House, the roadway SHPO have reached agreement on measures to would pass behind the structure. Construction of mitigate historic impacts for the preferred the roadway in this location would require an alternative (Alternative D Refined). approximately 20-foot-high retaining wall behind The following mitigation would occur for impacts (west of) the Superintendent’s House to the existing Sellwood Bridge: (Figure 3.10-2). The River View Cemetery owners believe the visual impacts of • Prepare a supplemental recordation of the

FIGURE 3.10-2 Existing Condition and Alternative D Refined

Alternative D Refined are preferable to those of Sellwood Bridge in accordance with the Alternative D. HAER. The supplemental HAER documentation of the Sellwood Bridge would

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document the changes to the Sellwood The following mitigation would occur for impacts Bridge since it was recorded as part of the to the River View Cemetery and the Willamette River Bridges Project in 1999. Superintendent’s House:

• Place interpretive signage at the east and • Research, photograph, and record the history west ends of the new bridge or in Sellwood of the River View Cemetery Superintendent’s Riverfront Park. This would provide House in accordance with the standards set information regarding the history of river forth by the HABS. crossings in the immediate area, the Sellwood neighborhood, and River View Cemetery. • Prepare a short history of the River View Cemetery that would show the location of • Clean, treat, and store the existing (original) roads and trails, structures, and important dedication plaques until completion of the graves. It would include photographs of new bridge, then reinstall them at a location important structures and general vistas of the near the east end of the bridge. cemetery grounds and the cemetery gates.

• Provide for the creation and upkeep of a • Move the cemetery gates to a new location Web site during project construction that within the cemetery property. would provide information regarding the historic Sellwood Bridge and River View • Place interpretive signage at the Cemetery. Superintendent’s House. This signage would provide information and images discussing the • Assess existing bridge materials to determine Superintendent’s House, and would present a what materials, if any, might be salvageable, general history of the River View Cemetery. and make those available to interested parties. • Design the retaining walls around the Superintendent’s House so that they would • Prepare a list of potential interested parties in assimilate with the surrounding landscape, advance of any proposed salvage or and use vegetation screening to obscure the advertisement. new structures.

• Prepare an advertisement announcing the 3.10.4 Summary of Alternatives by availability of salvageable materials from the Differentiating Sellwood Bridge. Archaeological and • Identify what materials, if any, could be Historic Resources Impact incorporated into the new bridge and/or into the interpretive panels.

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TABLE 3.10-2 Summary of Alternatives by Differentiating Archaeological and Historic Resources Impact Impact Type No Build A B B/TDB C D E D Refined Direct Impact to None Replaces and Replaces and Replaces and Removes Replaces and Replaces and Replaces and River View moves access, moves access, moves access, access from moves access, moves access, moves access, Cemetery removes removes removes OR 43, removes removes removes informal informal informal removes informal informal informal landscaping landscaping landscaping informal landscaping landscaping landscaping landscaping Direct Impact to None Displaces Displaces Displaces Removes Displaces Displaces Displaces Superintendent’s parking, some parking, some parking, some access from parking, some parking, some parking, some House parking would parking would parking would OR 43, parking would parking would parking would be restored, be restored, be restored, displaces be restored, be restored, be restored, alters setting alters setting alters setting parking, some alters setting alters setting alters setting parking would be restored, alters setting Direct Impact to Bridge Alters Alters Alters Removes Removes Removes Removes Sellwood Bridge would significantly, significantly, no significantly, historic bridge historic bridge historic bridge historic bridge deteriorate no longer longer eligible no longer eligible for for National eligible for National Register National Register Register Indirect Impact to None Alters setting Alters setting Alters setting Alters setting Alters setting Alters setting Alters setting Superintendent’s House B/TDB = Alternative B with temporary detour bridge

3-148 Sellwood Bridge Project Final Environmental Impact Statement Visual Resources Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

Visual Resources Summary 3.11 Visual Resources Rehabilitation or replacement of the existing 3.11.1 Affected Environment bridge alone would have little visual impact The Sellwood Bridge area is popular for on the existing landscape. Construction of a bridge in a new location would minimally recreation and includes river-oriented parks, affect views of downtown Portland and the businesses, and moorages. Generally, natural West Hills. The landscape would be most landscape elements with terrain and elevation affected by construction of the bridge changes dominate the west bank of the approaches and the west-side interchange Willamette River. The east bank has less with OR 43. Other than the elevated east- side bridge approach of Alternative E, none elevation change and is more developed, with of the east-side connections with SE Tacoma parkland and multifamily housing along and near Street would vary enough to be a the river. Houseboats are anchored in two differentiating factor for visual quality clustered developments on both sides of the change. On the west side, cuts into the river. OR 43, a major arterial, runs less than a hillside above OR 43 and removal of vegetation for all the Build alternatives quarter-mile inland from the river’s west bank at would have approximately equal and the foot of the hillside. Views from OR 43 to the significant adverse impacts to the visual east bank are screened by the vegetation on the resources of the project area. west bank. The river, hills, and more distant Portland skyline contribute to the moderately high quality of the visual environment. The City of Portland Comprehensive Plan (City of Portland, 2006) outlines requirements for Statewide Planning Goal 15 protecting scenic resources through the City of (Willamette River Greenway Portland’s Scenic Resources Protection Plan (1991). Program; Oregon Administrative Rule [OAR] 660-015-0005) The Sellwood Bridge is identified as a scenic designates the Willamette River resource. The Scenic Resources Protection Plan also Greenway, on both shores within the identifies four scenic viewpoints in the project study area, as an area for resource area where the viewsheds should be protected management and recreation access. from development that would degrade the views. The objective of Goal 15 is to protect, conserve, enhance, and These viewpoints are shown on Figure 3.11-1, Program maintain the natural, scenic, which also illustrates eight key viewpoints for the historical, agricultural, economic, visual analysis. Some of these viewpoints are and recreational qualities of lands described and illustrated as they relate to specific along the Willamette River. The Build alternatives. Although the bridge is the Willamette River Greenway Build alternatives would need to comply with this goal. focus of these four protected scenic viewpoints, the Scenic Resources Protection Plan does not People in apartments and condominiums, outline specific restrictions to bridge project commercial buildings, houseboats, and single- development, such as height or scenic overlay family residences would have views of the project zones. The Comprehensive Plan uses scenic overlay improvements. Those traveling by private vehicle, zoning to protect scenic resources. public transit, bicycle, and foot along OR 43, adjacent trails, and the Sellwood Bridge and its approaches would have views from the project improvements. In the project area, views of the Willamette River and West Hills are most sensitive to visual quality change.

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3.11.2 No Build Alternative Visual impacts are the combined result of changes in visual resources Environmental and viewer responses to such

Visual changes.

Consequences Impacts No visual impacts are anticipated for the No Build Alternative. Events such as structural viewpoints of and from the road (and bridge) failures, severe weather, vehicle collisions, were identified as most representative for visual landslides, and vegetation morbidity potentially impact analysis (Figure 3.11-1). could alter the visual condition of built and Because a bridge already exists, a new or natural elements of the landscape. rehabilitated bridge in the same location would be less visually intrusive than a new bridge structure at 3.11.3 Build Alternatives a different location. The structural elements Environmental employed in the bridge design could obstruct the Consequences view at some locations and improve the view at Impacts and Mitigation Common to other locations. Some bridge design types would All Build Alternatives dominate and obstruct the landscape more than others. A new or rehabilitated bridge structure Direct Impacts. Visual impacts are the could actually improve visual quality. combined result of changes in visual resources and viewer responses to such changes. Eight key

FIGURE 3.11-1 Protected Scenic Viewpoints and Key Viewpoints for Visual Analysis

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East Side of the Willamette River. Overall, to restore the natural environment along OR 43. the impact to visual quality of the built Using existing vegetation or replanted vegetation environment on the east side of the river would to screen the retaining walls could reduce the be minimally negative, and possibly positive along visual impact after approximately 10 years. SE Tacoma Street. Views from the east side Mitigation measures for visual resources would toward the West Hills across the river would be include: most strongly impacted by hillside cuts and retaining walls a minimum of 20 feet high.  Reducing form, texture, or color contrasts in West Side of the Willamette River. The structures and cut/fill slopes three west-side interchange types (roundabout,  Refining the alignment of the interchange and trumpet, and signalized intersection) would ramps to lessen the hillside cuts significantly change the existing landscape west of the river. The hillside above OR 43 would be cut  Planting replacement vegetation and/or and vegetation (such as trees) would be removed limiting the removal of vegetation to buffer or during construction of the interchange. New screen sensitive viewers from introduced structures on the west bank would include structural elements and slope scarification; retaining walls and elevated ramps for the west- replanting large-growing trees side interchange, the bicycle/pedestrian path, and  Preserving existing stands of mature trees a future streetcar line with trail improvements. and other attractive natural vegetation to the These items would cause negative visual impacts. greatest extent possible; minimizing clearing Construction. Clearing, grubbing of mature for construction, and marking trees for vegetation, grading, and the presence of preservation equipment, materials, signage, and staging areas  During construction, shielding light sources would cause temporary visual effects during to block direct views of temporary lighting construction. In certain areas, debris piles from from residential areas, and aiming and the removal of large mature trees would shielding light sources to reduce spillover temporarily lessen visual quality. Construction lighting would likely occur at night, requiring additional lighting. The glare from unshielded light sources Alternative-specific Impacts and increases in ambient nighttime light levels would affect residents near the construction area. Alternative A Impacts on visual resources from Alternative A Indirect Impacts. Visitors interested in seeing mostly would result from retaining walls and the the rehabilitated or new bridge and its views proposed new bicyclist and pedestrian facilities. could increase local traffic. More people would East Side of the Willamette River. On the likely use the bicyclist and pedestrian facilities east side, the separate bicycle/pedestrian bridge because of the bridge’s improvements, views, and would cross over Sellwood Riverfront Park, connection to urban facilities in Sellwood. which could be a positive or negative visual Mitigation. As part of landscape mitigation at impact (Figure 3.11-2). The rehabilitated vehicular the time of construction, final design would bridge would not cause an adverse change to determine new plant locations, species, and sizes. visual quality because it would be located on the Mitigation measures recommended for same alignment and would be the same bridge consideration during final design would attempt type (continuous-truss) as the existing bridge.

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FIGURE 3.11-2 Alternative A Cable-stayed Bicycle/Pedestrian Bridge from Sellwood Riverfront Park

FIGURE 3.11-3 Alternative A Roundabout Interchange and Bicycle/Pedestrian Path

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West Side of the Willamette River. On the change in visual quality on both sides of the river west side, a spiral ramp on the west bank would because there would be two bridges crossing the connect the bicycle/pedestrian bridge to the river during construction. The temporary detour Willamette Greenway Trail (West Bank), and a bridge would cause an adverse change in visual bicycle/pedestrian overpass. A path west of and quality from Oaks Pioneer Park because it would above the southbound OR 43 off-ramp would be aligned adjacent to the park. lead to the roundabout (Figure 3-11.3). With the southbound OR 43 off-ramp and bicycle/ Alternative C East Side of the Willamette River. Other pedestrian path would be a retaining wall than the view of the retaining walls and new approximately 20 feet high that would run interchange on the west side, there would be no 350 lineal feet between the bicycle/pedestrian adverse change in visual quality on the east side overpass and the roundabout. Where the because the new bridge would be located on the overpass would meet the path, a 48-foot cut into same alignment as the existing bridge. The bridge the hillside would be required. The top of the type would be through-arch, which would have retaining wall for the bicycle/pedestrian path superstructure (bridge elements above the bridge between the overpass and roundabout would be deck) that would be visible from SE Tacoma more than 50 feet above OR 43. North of the Street (Figure 3.11-4). However, this would not overpass, a retaining wall or rock-face cut would cause an adverse change in visual quality and be 30 feet high nearest the overpass and descend could actually be a positive change in visual to 5 feet high at a point approximately 500 feet quality. north of the overpass. West Side of the Willamette River. The Alternative B visual impacts of the ramp configurations and East Side of the Willamette River. Other retaining walls of the west-side interchange than the view of the retaining walls and new differentiate Alternative C from the other Build interchange on the west side, there would be no alternatives. The biggest visual differences would adverse change in visual quality on the east side be the removal of the buildings on the Staff because the rehabilitated bridge would be located Jennings property and the addition of a linear on the same alignment and be the same bridge bicycle/pedestrian ramp approximately 500 feet type (continuous-truss) as the existing bridge. long that would rise to connect the Willamette West Side of the Willamette River. As with Greenway Trail (West Bank) to the bridge. all the Build alternatives, the elevated ramps and Above the southbound exit ramp, an 80-foot-high retaining walls of the west-side interchange would wall would be prominent to drivers westbound cause adverse changes to visual quality. Near the on the replacement bridge. This wall is shown on interchange, however, the impacts of the tall Figure 3.11-5. Alternative C would have fewer retaining wall would not be as great as with lineal feet of rock face cut/retaining wall for the Alternative A because Alternative B would lack southbound ramp than the other Build the bicycle/pedestrian path connection of alternatives. However, the location and extreme Alternative A between the separate height of the retaining wall (80 feet) above the bicycle/pedestrian bridge and the roundabout. interchange directly west of the bridge terminus would have a high negative visual impact. Temporary Detour Bridge. The temporary detour bridge would cause a temporary adverse

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FIGURE 3.11-4 Alternative C Through-arch Bridge from SE Tacoma Street

FIGURE 3.11-5 Alternative C Trumpet Interchange

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Alternative D the east-end approach would have a foreground East Side of the Willamette River. Other view of an area north of SE Tacoma Street that than the view of the retaining walls and new would be elevated roadway. The present view is interchange on the west side, there would be no of mixed commercial development. The existing adverse change in visual quality on the east side bank overlooking SE Oaks Park Way would be because the new bridge would be located on the topped by the new bridge approach, resulting in same alignment as the existing bridge. The two the loss of some mature trees. Encroachment in bridge type options (delta-frame and deck-arch) this area would be larger than the bicycle/ would have no superstructure (bridge elements pedestrian bridge under Alternative A. However, above the bridge deck). Therefore, the view from redevelopment efforts in this commercial area SE Tacoma Street (Figure 3.11-6) and Sellwood (which is now largely asphalt-covered) or Riverfront Park (Figure 3.11-7) would be similar extensive roadside landscaping (given an to existing conditions. expanded right-of-way) could improve the visual quality of the area west of SE 6th Avenue. West Side of the Willamette River. Under Alternative D, the elevated ramps and retaining West Side of the Willamette River. For walls of the west-side interchange would Alternative E, the west-side interchange would be adversely change the visual quality. These visual located further to the north than for changes would be similar among all the Build Alternative A. Consequently, Alternative E would alternatives. Near the interchange, however, the not have the tall retaining walls or hillside cuts impacts of the tall retaining wall would not be as south of the underpass connection to Powers great as with Alternatives A or E because Marine Park that would result from Alternative D would lack the bicycle/pedestrian Alternative A. This shift would realign portions of path connection of Alternative A. OR 43 to meet with the existing roadway farther north. However, almost 700 feet of realigned Alternative E OR 43 immediately south of the interchange Alternative E would include a new structure in would require a retaining wall 5 to 10 feet high approximately the same location as the separate on one or both sides of the roadway (Figure bicycle/pedestrian bridge with Alternative A, but 3.11-9). The cemetery access road would also without a bicycle/pedestrian overpass of OR 43. require hillside cuts and tall retaining walls. North However, because of the width, depth, and height of the new west-side interchange, the of the structures, Alternative E (box-girder or southbound ramp would require a 40-foot high through-arch bridge types) would have the rock face cut/retaining wall for 200 lineal feet, potential for larger view obstructions than then a 25- to 35-foot-high rock face cut/retaining Alternative A (cable-stayed or stress-ribbon wall for another 400 lineal feet. In addition, north bicycle/pedestrian bridge types). of the interchange, the northbound ramp would East Side of the Willamette River. The be on fill with retaining walls that would range landscape on the east side of the bridge would from 25 to 30 feet high for 600 lineal feet. These significantly change because a new bridge hillside cuts would be prominent from the approach at SE Tacoma Street would be condominiums on the east side of the Willamette constructed. The alignment would veer north River and parklands on both sides of the river. over SE Spokane Street and be aligned adjacent to Sellwood Riverfront Park (Figure 3.11-8). The view from Oaks Pioneer Park would also be an adverse change in visual quality. Bridge users on

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FIGURE 3.11-6 Alternative D and Preferred Alternative (Alternative D Refined) Deck-arch Bridge from SE Tacoma Street

FIGURE 3.11-7 Alternative D and Preferred Alternative (Alternative D Refined) Deck-arch Bridge from Sellwood Riverfront Park

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FIGURE 3.11-8 Alternative E Through-arch Bridge from Sellwood Riverfront Park

FIGURE 3.11-9 Alternative E Signalized Interchange and South Ramps from above West Bank in Mid-air (Demolished Existing Bridge)

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Alternative D Refined stepped, vegetated fashion, which would soften (Preferred Alternative) the view from across the river. East Side of the Willamette River. There would be no adverse change in visual quality on Realignment of the roadway providing access to the east side because the new bridge would be River View Cemetery, Powers Marine Park, and located on the same alignment as the existing the Staff Jennings property would change the bridge. The two bridge type options (deck-arch visual impact of the project to the historic and delta-frame) would have no superstructure Superintendent’s House. Rather than crossing in (bridge elements above the bridge deck). front of the Superintendent’s House, the roadway Therefore, the view from SE Tacoma Street would pass behind the structure. Construction of (Figure 3.11-6) and profile view from Sellwood the roadway in this location would require an Riverfront Park (Figure 3.11-7) would be similar approximately 20-foot-high retaining wall behind in scale to existing conditions. (west of) the Superintendent’s House. Historic resources mitigation measures would include West Side of the Willamette River. Under retaining wall treatments to complement the Alternative D Refined, the elevated ramps, rock surrounding landscape and vegetative screening cuts, and retaining walls of the west-side to obscure the walls. Additional mitigation interchange would adversely change the visual measures would call for moving the existing quality. Because the footprint of the interchange stone cemetery gates to the new under Alternative D Refined would be moved Superintendent’s House driveway and placing slightly to the west, the height of the rock cut plaques commemorating the historic and retaining wall on the west side of OR 43 Superintendent’s House and Sellwood Bridge would be higher than with all the other near the Superintendent’s House. The River View alternatives (see Table 3.11-1). However, Cemetery owners believe the visual impacts of removal of the bicycle/pedestrian spiral ramps in Alternative D Refined are preferable to those of Alternative D Refined would reduce the visual Alternative D. impact from the east side, closer to the impacts identified for Alternative C. In addition, the 3.11.4 Summary of Alternatives retaining walls along the streetcar and multi-use by Differentiating Visual path alignment on the east side of OR 43 through Resources Impact Willamette Moorage Park would be treated in a

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TABLE 3.11-1 Summary of Alternatives by Differentiating Visual Resources Impact No Build A B C D E D Refined Presence of retaining walls 0 lf 930 lf 580 lf 400 lf 660 lf 800 lf 1,200 lf 10 feet or higher (in lineal feet; OR 43 southbound exit ramp) Presence of retaining walls 0 lf 600 lf 600 lf 450 lf 650 lf 950 lf 750 lf 10 feet or higher (in lineal feet; OR 43 southbound entrance ramp) Significant east-side visual No Yes No No No Yes No change? (new (bridge on bridge) new alignment) Significant west-side visual No Yes Yes Yes Yes Yes Yes change? lf = lineal feet

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3.12 Geology Geology Summary

3.12.1 Affected Environment All the alternatives except for Alternative E The geology in the vicinity of the Sellwood Bridge are within the landslide area that has caused movement of the existing west-end bridge project consists primarily of a series of volcanic pier. Drilling shafts into stable rock below (basalt) flows. Flood deposits, placed fill, river the landslide would mitigate pier movement. alluvium, landslide debris, and other The Build alternatives do not differ unconsolidated geologic deposits have covered significantly from one another with respect to the combination of cuts, fills, erosion the area over time. Holes (borings) were drilled potential, and resource needs. Under all in the project vicinity to evaluate subsurface Build alternatives, structures would be conditions, to install instruments for measuring designed to reduce risks of geologic hazards groundwater levels, and to monitor slope (such as landslides, rock cuts, changes in movement. Boring locations showed that drainage patterns and erosion, and liquefaction). This would improve safety belowground materials in the project vicinity compared to existing conditions. consist primarily of mixed layers of unconsolidated materials (silt, silty sand, silty weight of fill on the west end transfer weight to gravel, and clay with gravel) and basalt bedrock. the already unstable slide, causing downhill The structure of the basalt bedrock in the project movement. It is likely that parts of the slide are vicinity is important for slope stability. Because related to construction of the existing bridge, the unconsolidated materials have soil-like retaining wall, ramp, and abutment. characteristics and lower strength than rock, they are subject to settlement and instability. Periodic earthquakes affect the Pacific Northwest, including the project area. Earthquakes can cause permanent ground Major geologic hazards in the project area include landslides, erosion, and changes, either by slippage along fault lines and earthquakes. Erosion is the weathering steep slopes or by the movement of soils from away of soil. Landslides are the ground-shaking. Within the project area, the downward movements of rock, soil, or hazards most likely to occur from earthquakes artificial fill on a slope. Erosion and include damage to structures, liquefaction, ground landslides are functions of the area’s soil types and topography—the steeper the motion, and landslides induced by seismic activity. slope and the finer or more layered the Liquefaction occurs when seismic shaking causes

Geologic Hazards soil, the likelier erosion and landslides certain soils to act like liquids. are to occur. 3.12.2 An ancient landslide exists at the west end of the No Build Alternative current bridge (Figures 3.12-1 and 3.12-2). The Environmental existing bridge is in the northern portion of this Consequences landslide. Known as the Sellwood Slide, this Under the No Build Alternative, the Sellwood landslide is approximately 500 feet long and 70 to Slide would continue its slow movement, which 85 feet thick. The construction of the Sellwood could continue to structurally compromise the Bridge in 1925 may have led to instability on the west approaches of the existing bridge. landslide. The placement of fills and bridge piers Continued slope instability and occasional small on top of the landslide may have added enough rockfalls could occur on the existing rock cuts, weight to modify the topography. Damage to the which could cause road damage, traffic disruption, bridge piers on the west side indicates a slow and injury to motorists. It is not likely that the landslide over time. Shallow bridge footings and

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FIGURE 3.12-1 Sellwood Slide

FIGURE 3.12-2 Geologic Cross-Section

Sellwood Bridge Project F i na l Environmental Impact Statement 3-161 Ge o l o g y Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation drainage patterns and topographic configuration stormwater away from the project site to would change over time. prevent ponding or flooding. Drainage layers under retaining walls and culverts through Large precipitation events could cause erosion embankment fills would move runoff under or and sediment transport, and other future through these structures to ensure drainage and construction projects or road modifications could prevent saturation. lead to increased erosion potential. However, it is not likely that the erosion potential would Direct impacts to geologic resources would change over time unless a drastic event occurred include the depletion of materials used to in the project vicinity, such as a fire that removed construct earthfills, approach embankments, and vegetation. retaining walls; to manufacture aggregate; and to supply topsoil. In addition, construction of bridges 3.12.3 Build Alternatives and structures would require use of large Environmental quantities of steel and concrete. These resources Consequences could not be replaced. It is anticipated that the excavation of cut slopes for the project would Impacts and Mitigation Common to provide a surplus of material. Some material All Build Alternatives could be used as general fill. The excess material Direct Impacts. Erosion, topographic would need to be disposed of off-site in an modifications, and drainage pattern alterations appropriate location. are direct impacts expected to occur for all Build alternatives. The weight from new fill and structures (such as retaining walls) and the excavation of cut slopes The cut-and-fill slopes, retaining walls, and other would create instability on the existing Sellwood structures would have the potential to create Slide. Cutting into an unstable area would likely slope instability. The existing landslide (Sellwood result in an unstable cut that would require Slide) would be a concern for the project stabilization measures, as summarized in the construction and could be impacted by all Build Mitigation section. alternatives. Modifications to an existing landslide could cause instability or renewed movement if Construction impacts would include vibrations not properly designed and constructed. These and damage to structures from rock blasting direct impacts could cause soil erosion concerns. operations; the dropping of rocks into the travel roadway during construction of rock cuts; soil Rock cut slopes would be constructed along the erosion and increased runoff in devegetated west bridge approach as part of each Build areas; and sedimentation in the Willamette River alternative. The rock cut slopes could also have a resulting from lack of proper construction thick mantle of soil or weathered rock at their controls. Foundation construction within the crests. Direct impacts from new rock cuts would Willamette River could affect river navigational include rockfall hazards, global rock slope uses and could temporarily increase turbidity and instability, costly construction, and ongoing suspended sediments in the river. maintenance. Indirect Impacts. Indirect impacts for all Build The Build alternatives would modify the existing alternatives would include the following: drainage patterns and topography from the cut- and-fill slopes and retaining walls. However,  Changes in topography from grading could culverts and drainage ditches would be affect drainage patterns and erosion, which incorporated at the base of cut-and-fill slopes and could in turn increase the potential for future along new roads. These ditches would convey landslide movement by causing accumulation

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and infiltration of stormwater in slide-prone Rockfall Hazards. Basic rockfall mitigation soils. techniques would include installing rockfall nets or catch fences to cover slopes and constructing  Permanent, steeper slopes, fills, and a rock catchment ditch (Figure 3.12-3) with a structures could decrease the long-term barrier between the ditch and OR 43. Bolts and stability of the Sellwood Slide and could mesh could be used to cover high rockfall hazard create the potential for future movement on areas such as weathered zones of rock. Rock the existing landslide. anchors could be used to increase the stability of  Seismic events could affect the new the slope. If highly weathered rock or soil-like structures, new fill slopes, new rock cut zones were exposed in rock cuts, then slopes, and stability of the Sellwood Slide. stabilization techniques such as mesh or soil nails could be employed to mitigate slope hazards  Large precipitation events could lead to (Figure 3.12-3). future slope failures and erosion on new cut- and-fill slopes constructed as part of the Drainage and Erosion. Standard erosion project that would not have existed under control techniques (including stormwater and the No Build Alternative. erosion best management practices such as the development and implementation of a Mitigation. Mitigation measures would be comprehensive erosion and sediment control designed to minimize short- and long-term plan) would be used in construction zones to impacts. Many mitigation measures would be common to all Build alternatives, as summarized FIGURE 3.12-3 Geologic Mitigation Techniques in the following subsections. Figure 3.12-3 shows a conceptual drawing of mitigation techniques for rockfalls and rock cut instability.

Sellwood Slide. Constructing new piers and abutments in stable ground below the slide and using drilled shafts and driven piling would provide structural mitigation. This technique would involve driving or drilling the piles or shafts through the slide mass and into stable rock below the slide. Removing the existing fill and replacing it with lightweight fill, such as Styrofoam™, would reduce the force on the landslide and reduce the weight of fills.

Sellwood Bridge Project F i na l Environmental Impact Statement 3-163 Ge o l o g y Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation minimize erosion. For the long-term, erosion would be anticipated because there would be could be controlled by hydroseeding and fewer potential stability issues and rockfall establishing vegetation as soon as possible. Other hazards. measures would include diverting stormwater runoff away from cuts and fills and constructing  Existing landslide area. Alternative A erosion retention basins. would include excavation of cut slopes within the limits of the existing Sellwood Slide. Seismic Hazards. Mitigation for seismic hazards OR 43 would be cut into the slide to a depth to bridges, structures, and retaining walls would of 18 feet. No fills would be within the include evaluating the level of loading to be landslide limits for this alternative. expected during design and performing structural design to withstand the anticipated loads. Alternative B Overall, Alternative B would have the lowest Foundation design would consider liquefaction rock cut slopes and lowest fills of all the Build and the structure would be founded on rock or alternatives. Consequently, the impacts related to more stable ground, such as the Troutdale Alternative B could be expected to be less than formation, if encountered at depth. Slope with the other Build alternatives. stabilization measures (such as installing drilled shafts or micropiles and increasing soil strength)  Fill height. Alternative B would have a would also provide mitigation for seismic hazards. maximum fill height of 21 feet.

 Cut height. Alternative B would have two The Troutdale formation, which was rock cuts with maximum heights of 36 and formed during the Missoula Floods, 38 feet, and maximum rock cut lengths consists of cemented boulders, between 500 and 850 feet. Because the rock cobbles, gravels, and sand. The Ross Island Bridge, located 2.5 miles to the cut heights would be lower than the rock

Troutdale cuts of the other Build alternatives, lower

Formation north of the Sellwood Bridge, is founded on the Troutdale formation. impacts would be anticipated because there would be fewer potential stability issues and Alternative-specific Impacts rockfall hazards. Environmental consequences and mitigation for  Existing landslide area. Alternative B the Build alternatives are summarized in the would include excavation of cut slopes within following subsections. Fill heights, cut heights, and the limits of the existing Sellwood Slide. the existing landslide area for each Build OR 43 would be cut into the slide to a depth alternative are addressed. of 18 feet. No fills would be within the Alternative A landslide limits for this alternative.  Fill height. Alternative A would have a maximum fill height of 36 feet (for the Alternative C  Fill height. Alternative C would have retaining walls along the northbound maximum fill heights of 38 feet along the entrance ramp). northbound entrance ramp. This alternative  Cut height. Alternative A would have two would have the largest cut slope heights and rock cuts with maximum heights of 38 and the highest fills of all the Build alternatives 49 feet, and maximum rock cut lengths and, consequently, the greatest potential between 500 and 900 feet. The rock cut impacts from a slope stability perspective. heights would be lower than with some of the other Build alternatives, so lower impacts

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 Cut height. Alternative C would have two of 18 feet. The streetcar/trail would be rock cuts, including a 20-foot-high cut and a constructed on a retaining wall up to 28 feet large, high, rock cut along the southbound high on the slide, which could cause slide exit because of the trumpet-type intersection movement. Alternative D, which would have where the southbound exit ramp would be the highest fills on the existing landslide, farther to the west than with the other Build appears to have the most potential to impact alternatives. The maximum height of this rock the slide of all the alternatives. However, if cut would be approximately 65 feet. This the streetcar/trail were constructed on a alternative would have the second highest bridge structure rather than on a retaining rock cut slope of all the Build alternatives. wall, the impacts would be minimized. The length of the two rock cuts would range from 450 to 525 feet. The height of the rock Alternative E  Fill height. Alternative E would have a cut slope could cause stability concerns, maximum fill height of 30 feet along the which could lead to greater impacts. A rock northbound entrance ramp. cut of this height would have the potential to cause a large impact because of design and  Cut height. Alternative E would have two construction difficulties, stability concerns, rock cuts with maximum heights of 40 and rockfall hazard, and the potential cost of 57 feet, the third highest of all the Build stabilization and maintenance. alternatives. The length of the two rock cuts would range from 450 to 650 feet. Although  Existing landslide area. Alternative C the rock cuts would not be as long as those would include excavation of cut slopes within in the other Build alternatives, the height of the limits of the existing Sellwood Slide. the two rock cuts for this alternative would OR 43 and the southbound entrance would cause stability concerns, which could lead to be constructed on retaining walls that would greater impacts. A rock cut of this height be up to 12 feet high. These could cause slide would cause larger impact construction movement. The streetcar/trail bridge could difficulties, stability concerns, rockfall hazard, be extended to the south, which would likely and potential costs for stabilization and avoid impacting the landslide. However, maintenance. because no cuts or excavations and no underpass would be within the landslide  Existing landslide area. Alternative E limits, Alternative C would have lower would require minimal excavating and filling impacts from a cut-slope stability standpoint. on the existing landslide mass. There would be a combination of cut and fill into the slide Alternative D along OR 43. The cut would be 8 feet high  Fill height. Alternative D would have a and the fill would be 10 feet high within the maximum fill height of 28 feet. landslide area. Overall, this alternative would  Cut height. Alternative D would have two have the least impact to the landslide area rock cuts with maximum heights of 38 and compared with the other Build alternatives. 41 feet, and maximum rock cut lengths between 500 and 900 feet. Alternative D Refined (Preferred Alternative)  Existing landslide area. Alternative D  Fill height. Alternative D Refined would would include excavation of cut slopes within have a maximum fill height of 20 feet at the the limits of the existing Sellwood Slide. northbound entrance ramp. This would be OR 43 would be cut into the slide to a depth

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the lowest maximum fill height of all the Build property beneath and east of the OR 43 alternatives. northbound off-ramp to avoid cuts or fills into the toe of the landslide. If a cut were  Cut height. Alternative D Refined would required in this vicinity, the cut slope would have a maximum cut height of 73 feet at the be stabilized using a soil nail wall or a southbound exit ramp. This would be the retaining wall. largest cut height of all the Build alternatives.  Construct micropiles in the vicinity of the toe  Existing landslide area. Alternative D of the landslide to provide structural Refined would include excavation of cut stabilization for the lower part of the landslide mass. These structural elements slopes within the limits of the existing would add additional shear capacity at the Sellwood Slide. OR 43 would be cut into the failure plane of the slide, which would resist slide to a depth of 43 feet along the roadway the driving force of the landslide and increase that would provide access to Powers Marine safety. Park and the Staff Jennings property. This would be the largest cut height within the  Construct the future planned streetcar landslide area of all the Build alternatives. The alignment on the slide approximately at grade, which would eliminate the need for maximum fill height within the slide area cuts or fills. would be 6 feet.  Stabilize the weathered rock at the Mitigation. Mitigation measures for Alternative southbound OR 43 off-ramp using tiebacks D Refined would be similar to the previously (upper portion of this rock cut). listed mitigation measures. Specific mitigation measures for Alternative D Refined would  Found bridge piers on materials with suitable include the following: strength. Use the latest probabilistic seismic hazard analyses to design the bridge piers to  Remove existing fill material, which would withstand damage from seismic shaking and remove the driving force causing the existing liquefaction based on fully characterized landslide to move. Recent movement of the subsurface conditions and seismic potential. existing landslide may be the result of adding  Relocate the existing water-line pipes, as fill material. necessary, to avoid destabilization of the soil  Construct a secant-pile wall along the supporting these pipes (which could damage roadway to Powers Marine Park and the Staff the pipes, causing them to fail). Jennings property to stabilize the cuts into the landslide mass. 3.12.4 Summary of Alternatives by  Construct a structure on the roadway to Differentiating Geology Powers Marine Park and the Staff Jennings Impact

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TABLE 3.12-1 Summary of Alternatives by Differentiating Geology Impact No Impact Build A B C D E D Refined Maximum Fill Height 0 feet 36 feet 21 feet 38 feet 28 feet 30 feet 20 feet Maximum Cut Height 0 feet 49 feet 38 feet 65 feet 41 feet 57 feet 73 feet Fill Height in Sellwood Slide 0 feet 0 feet 0 feet 12 feet 28 feet 10 feet 6 feet Cut Height in Sellwood Slide 0 feet 18 feet 18 feet 0 feet 18 feet 8 feet 43 feet

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3.13 Water Quality Water Quality Summary

3.13.1 Affected Environment The Build alternatives would increase impervious surface area compared to the No The Willamette River, which is approximately Build Alternative by 80 to 100 percent. 187 river miles long, drains the Willamette Valley While the increase in impervious surface in western Oregon. The existing Sellwood Bridge area would degrade water quality, with is located about 16.6 river miles upstream of the proposed mitigation, water quality would Willamette River’s confluence with the Columbia improve so that it would be better than with the No Build Alternative. River. At the bridge, the river has a tributary drainage of approximately 11,200 square miles, and the streambed elevation is below sea level 3.13.3 Build Alternatives and subject to tidal influences. Environmental Climate, topography, soils, drainage, and human Consequences activities influence water quality. The drainage in Impacts and Mitigation Common to the project area flows directly to the Willamette All Build Alternatives River; there are no stormwater facilities in the Direct Impacts. Mitigated and un-mitigated project area. annual loads were calculated as a percentage of To assess ambient water quality in the the annual pollutant load in the Willamette River. Willamette River, monitoring data were retrieved Annual mass loads from the project were from the Oregon Department of Environmental determined and compared for both un-mitigated Quality (DEQ). To protect aquatic life and human and mitigated scenarios. health, Oregon Administrative Rule 340 defines Each of the Build alternatives would result in an the acute (short-term) and chronic (long-term) increase in impervious area compared to the No concentration criteria not to be exceeded in Build Alternative. Increasing impervious surface waters of the state. The lower Willamette River area would increase the amount of polluted is on DEQ’s federal Clean Water Act (CWA) runoff, leading to greater pollutant concentration Section 303(d) list of impaired waters. Every in the Willamette River. Therefore, un-mitigated 2 years, DEQ assesses water quality and reports mass pollutant loading to the river would to the U.S. Environmental Protection Agency increase with the increase in impervious area. (EPA) on the condition of Oregon’s waters. Pollutant load increases would vary between 80 percent and 100 percent. 3.13.2 No Build Alternative Environmental Mitigation was analyzed for the treatment of Consequences stormwater from all impervious areas within the project. With mitigation, the annual pollutant The No Build Alternative would maintain the existing pavement of 7.0 acres of impervious Section 303(d) of the Clean Water Act surface; stormwater runoff would not increase. (CWA) establishes that states are to list There would continue to be no water quality (the 303[d] list) waters for which treatment for the runoff unless the extent of the technology-based limits alone do not maintenance work triggered the need for a ensure attainment of applicable water quality standards (WQS). Every 2 years, biological assessment and the National Marine DEQ assesses water quality and reports Fisheries Service (NMFS) and DEQ required to the EPA on the condition of Oregon’s treatment and detention of stormwater. Section 303(d) List waters.

3-168 Sellwood Bridge Project F i n a l Environmental Impact Statement Water Quality Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation loads would generally decrease below those of would increase above the existing condition. the No Build Alternative. The incorporation of Flows, as a percentage of river flow in all cases, water-quality mitigation with the proposed Build would be less than a tenth of a percent of average alternatives would reduce pollutant loading to the annual flow in the Willamette River. Additionally, river, with the exception of metal pollutants that the streambed of the Willamette River in the are entirely dissolved. Load reductions for total vicinity of the Sellwood Bridge is below sea level. copper and total zinc would be approximately Downstream tidal influences profoundly affect the 1 to 10 percent. However, for dissolved copper river’s flow. These tidal influences exert a and dissolved zinc, annual loads would increase significant effect on the velocity in the river, and approximately 44 to 60 percent, but would be river velocities are relatively insensitive to below DEQ limits. New technologies are flow alone. currently under development and would likely be For construction activities, DEQ is responsible available by the time of project construction. for issuing and enforcing National Pollutant These technologies could greatly improve Discharge Elimination System (NPDES) 1200-C dissolved metals removal, incrementally permits. These permits identify activities during improving Willamette River water quality. construction to assure an acceptable standard of The greatest decreases would be in particulate water quality. In addition, the Federal 404 pollutant loadings, such as total suspended solids Wetland Removal Fill permit requires that (TSS). With mitigation, approximately 70 percent construction stormwater management and of particulate pollutants would be removed. construction practices be addressed. Major areas Dissolved pollutants would show the least of concern during construction are anticipated to removal, approximately 20 percent removal. This be erosion prevention, sediment control, and in- level of removal should be considered water work. Regulatory agencies would closely conservative; actual removal would likely be review these practices to minimize impacts. higher than calculated. The analysis was Indirect Impacts. No indirect impacts are completed using stormwater treatment anticipated. If the project induces redevelopment, technologies that are currently accepted and then redevelopment would require stormwater approved by the regulatory authorities. New mitigation exceeding the existing stormwater technologies are currently under development, mitigation. such as ecology embankments and compost amended swales, which should greatly improve Mitigation. As indicated under the Direct dissolved metals removal. Although these Impacts section, mitigation for stormwater technologies should be available when and if the generated from all impervious surfaces for the project goes to design, they are not currently Build alternatives would improve water quality recognized and, therefore, were not used as a over the existing conditions. treatment benchmark. Engineered stormwater treatment of runoff is An increase in impervious area would increase anticipated as a mitigation measure to reduce both the rate and volume of stormwater runoff. project impacts. Mitigation was considered for The increased rate of runoff could result in treatment of stormwater from all impervious adverse impacts to receiving streams. The surfaces. Various stormwater treatment methods increased flow and velocity in a receiving stream accepted by the City of Portland were could cause morphological impacts to the stream investigated to determine their viability. Potential channel. These impacts could potentially increase facilities were sized using guidelines from ODOT, sediment loading, which would result in stream City of Portland, National Oceanic and incision and damage to aquatic habitat. Flows

Sellwood Bridge Project F i na l Environmental Impact Statement 3-169 Water Quality Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

Atmospheric Administration, and NMFS. quality swales. Figure 3.13-1 shows potential Stormwater runoff from new impervious areas water quality swale locations along SE Tacoma would require permits from the City of Portland. Street between the east end of the bridge and

To provide treatment for the west side of the project, engineered bioswales would need to be Impervious surface refers to a surface through which water cannot percolate. approximately 400 feet long at a 0.5-percent Because pavement is impervious, slope, with a 14-foot bottom width. As a result of stormwater runoff and pollutant topography and natural resource issues, no loading increase as impervious area available locations within the west project area increases. As impervious area increases, the potential for infiltration were identified to site the requisite bioswales. of precipitation into the soil and The City of Portland has approved the use of groundwater decreases. Increased impervious area also provides a greater manufactured stormwater filters for water quality area on which vehicular pollutants can treatment. These filters could be sited in accumulate. An increase in impervious underground vaults placed in paved areas where area increases the volume and rate of traffic flow would allow periodic filter stormwater runoff with an increased maintenance. The west side of the project could pollutant load. The Federal Highway Administration (FHWA), in its be treated with two 6-foot-by-12-foot Impervious Surface Area research and methodology document, manufactured underground filter vaults within the Pollutant Loadings and Impacts from project right-of-way that would discharge to the Highway Stormwater Runoff, FHWA-RD- Willamette River; no additional right-of-way 88-006 (1990), reported a direct relationship between pollutant loading would be needed for stormwater facilities. and impervious area. However, more vaults might be required to partition maintenance responsibilities among the responsible jurisdictions (Multnomah County, SE 6th Avenue. However, the east end of the ODOT, and the City of Portland). bridge would produce too much runoff to be fully The project area along the east side of the treated using swales. Runoff from the east end of project could be partially treated with water the bridge could be treated partially or fully using one 6-foot-by-12-foot manufactured underground

FIGURE 3.13-1 Potential Water Quality Swale Locations along SE Tacoma Street

3-170 Sellwood Bridge Project F i n a l Environmental Impact Statement Water Quality Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation filter vault within the project right-of-way that more impervious surface than the No Build would discharge to the Willamette River. Alternative.

Stormwater treatment options and design for the Alternative D west and east sides would be refined during the Alternative D would have 13.9 acres of project’s engineering design phase. Stormwater impervious surface, or approximately 100 percent treatment would meet all applicable regulatory more impervious surface than the No Build and permitting requirements. Alternative.

Alternative-specific Impacts Alternative E Alternative E would have 13.6 acres of Alternative A Alternative A would have 13.7 acres of impervious surface, or approximately 95 percent impervious surface, or approximately 97 percent more impervious surface than the No Build more impervious surface than the No Build Alternative. Alternative. Alternative D Refined (Preferred Alternative) Alternative B Alternative D Refined would have 13.9 acres of Alternative B would have 13.8 acres of impervious surface, or approximately 100 percent impervious surface, or approximately 99 percent more impervious surface than the No Build more impervious surface than the No Build Alternative. Alternative.

Alternative C 3.13.4 Summary of Alternatives by Alternative C would have 12.6 acres of Differentiating Water impervious surface, or approximately 80 percent Quality Impact

TABLE 3.13-1 Summary of Alternatives by Differentiating Water Quality Impact Impact Type No Build A B C D E D Refined Impervious Surface Area 7.0 13.7 13.8 12.6 13.9 13.6 13.9 (acres) Improves water quality compared to existing No Yes Yes Yes Yes Yes Yes conditions?

Sellwood Bridge Project F i na l Environmental Impact Statement 3-171 H y d ra ul i c s Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

3.14 Hydraulics Hydraulics Summary

3.14.1 Affected Environment All Build alternatives, other than Alternative D and the delta-frame bridge The Sellwood Bridge spans the Willamette River cofferdam approach with Alternative D at river mile 16.6, as measured from its Refined, would contribute to a small increase confluence with the Columbia River. Tributaries in the base flood elevation.Therefore, they contributing flow in the vicinity of the project would require amendment of the regulated area are Stephens Creek, Johnson Creek, Kellogg floodway or a change in design to achieve no net rise. Engineering bridge design work Creek, and the Clackamas River. would be undertaken to avoid this impact. Additional obstructions in the floodway, The study area includes a Federal Emergency including bridge piers, might require Management Agency (FEMA) Special Flood conveyance offsets, or the Special Flood Hazard Area (SFHA; designated as “Zone AE”). Hazard Area (SFHA) might need to be Construction within this flood hazard zone revised to reflect proposed impacts. requires a permit from the City of Portland to assure that floodplain building requirements are rains in the winter. Typically, flooding in the met. Construction must balance cut and fill at or lower Willamette River is caused by backwater below the protected 100-year base flood effects from the Columbia River. Reservoir elevation. construction on both the Willamette and A FEMA-designated regulated floodway has been Columbia River systems has lessened flood risk delineated in the vicinity of the project area. for the Willamette River near the Sellwood “A Regulated Floodway” means that part of the Bridge, although the last major flood, in 1996, channel of a river or other watercourse and the occurred after the system was fully regulated. adjacent land areas that must be reserved in Flow velocities at the existing bridge vary across order to discharge a 100-year flood event the channel cross section and by depth, but (1 percent annual occurrence; base flood average velocities vary from 1 or 2 feet per elevation) with no more than a 1-foot rise over second under typical conditions and up to 8 feet the 100-year base flood elevation. Once the per second in major flood events. Local velocities boundaries of the regulated floodway are around obstructions such as bridge piers may be established, nothing may be placed in the higher, but obstructions may also provide areas regulated floodway that contributes to a net of little or no velocity. increase in the 100-year base flood elevation. Additional obstructions in the floodway, including 3.14.2 No Build Alternative bridge piers, might require conveyance offsets. Alternatively, the City of Portland and FEMA Environmental could request a Letter of Map Revision and Consequences change the base flood elevation to accommodate The No Build Alternative would not increase the piers. City of Portland code indicates that flooding, as measured by the change in water- development and structures are prohibited from surface elevation upstream of the project area. encroaching into the regulated floodway unless The No Build Alternative would create no change technical analysis from a registered engineer in backwater (flooding). demonstrates that the development would not increase the 100-year flood elevation. Flooding in the study area occurs primarily because of snowmelt in the spring and intense

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3.14.3 Build Alternatives  Prohibit construction equipment from Environmental entering watercourses, except when a specific task can only occur in the stream Consequences (such as the construction of piers). This Impacts and Mitigation Common to activity would be limited to the in-water All Build Alternatives work periods for watercourses with listed Direct Impacts. As currently designed and fish species. evaluated, all Build alternatives except  Prohibit equipment washing in the Alternative D and the delta-frame bridge watercourses. cofferdam approach with Alternative D Refined would increase the base flood elevation, resulting  Prohibit equipment from crossing the in a rise of between 0.01 and 0.08 foot above watercourses, except at temporary crossings, base flood elevation. Although small, even this unless impractical. A temporary crossing plan elevation change could require substantial would be prepared in coordination with the additional work—either to revise the bridge Oregon Department of Fish and Wildlife design during final design, or to address (ODFW) and ODOT. The plan would permitting requirements associated with identify proposed construction methods and documenting and communicating these impacts to develop appropriate mitigation measures to affected stakeholders. For those Build alternatives rehabilitate the watercourse habitats that that show an increase in base flood elevation would be affected by the temporary relative to the No Build Alternative, agency crossings. consultation would be needed to assess  Request review and approval from ODFW of permitting requirements and the need for associated studies. These studies might include fish passage mitigation measures resulting from the proposed bridge. re-mapping the floodplain and regulated floodway in the vicinity of the project. In addition, all Build  Size bridge openings to pass the 100-year alternatives encroach into the 100-year peak flood discharge with little or no increase floodplain. Floodplain encroachment, which is to the water surface elevation. addressed under 23 Code of Federal Regulations (CFR) 650A, Section 113, will require selection of  Obtain federal and state fill permits prior to the most practicable alternative. construction.

Indirect Impacts. Changes to channel  Perform a “no rise” analysis and obtain a City morphology would be anticipated during high of Portland Floodplain Development Permit flow events. It would be anticipated that indirect prior to construction. Any substantial impacts impacts would eventually stabilize with time. to the FEMA SFHA could be mitigated by one or a combination of the following techniques: Mitigation. The primary opportunity for mitigation of hydraulic impacts would be to  Excavate part of the streambank to reduce the base-flood-elevation change. This compensate for the permanent loss in could be accomplished by redesigning in-water flow area (that is, the loss created by the piers as bridge design progresses. installation of bridge piers).

Many of the following mitigation measures would  Investigate pier shaping to minimize be developed after hydraulic designs for the energy losses. bridge had been completed:

Sellwood Bridge Project F i na l Environmental Impact Statement 3-173 H y d ra ul i c s Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

 Prepare a detailed erosion control plan Alternative E during the final design. The plan would meet Table 3.14-1 summarizes hydraulic conditions for or exceed requirements of the National Alternative E. Pollutant Discharge Elimination System (NPDES) 1200-C permit. Alternative D Refined (Preferred Alternative) Alternative-specific Impacts and Table 3.14-1 summarizes hydraulic conditions for Mitigation the preferred alternative (Alternative D Refined). Additional hydraulic modeling was conducted for Alternative A Alternative D Refined. Table 3.14-1 shows the Table 3.14-1 summarizes hydraulic conditions for conditions by bridge type and bridge foundation Alternative A. construction method. (Section 2.3 summarizes Alternative B the cofferdam and perched in-water construction Table 3.14-1 summarizes hydraulic conditions for methods.) Immediately upstream of the bridge, Alternative B. the water surface elevation would increase more using the perched than the cofferdam Temporary Detour Bridge Option construction method. The temporary detour bridge would create an obstruction in the river’s flow for up to These are preliminary hydraulic analysis findings. 39 months. If a 100-year flood event were to As bridge engineering design progresses, a occur during the 39 months of construction, detailed analysis would be conducted to water surface elevation could reach 36.42 feet (an determine hydraulic impacts of the preferred increase of 2.81 feet above existing conditions), alternative and the potential to mitigate and velocities could increase to nearly 8.33 feet any impacts. per second (an increase of 1 foot per second over the current velocity). Additional temporary 3.14.4 Floodplain Finding impacts during construction (such as streambank Executive Order 11988 (Floodplain Management) erosion and temporary changes in water surface directs all federal agencies to refrain from elevations resulting from other temporary conducting, supporting, or allowing actions in structures) would be minimized by implementing floodplains unless it is the only practicable appropriate construction techniques (such as the alternative. Federal Highway Administration careful design of temporary structures) and (FHWA) requirements for compliance are erosion control best management practices. outlined in 23 CFR 650 Subpart A. Executive Order 11988 requires the consideration of Alternative C alternatives that avoid floodplain impacts for all Table 3.14-1 summarizes hydraulic conditions for federally funded projects. Alternative C. Implementation of the proposed action would Alternative D result in the loss of approximately 0.48 acre of Table 3.14-1 summarizes hydraulic conditions for floodplain. There are no practicable alternatives Alternative D. to the proposed improvements that would avoid Alternative D would not increase the water floodplain impacts. surface elevation. Thus, as currently configured, In accordance with Executive Order 11988 and Alternative D would have a measurable cost and 23 CFR 650, Subpart A, avoidance and schedule advantage relative to those Build minimization of floodplain impacts have been alternatives that would increase the water considered during project development, and surface elevation. design adjustments have been made, where

3-174 Sellwood Bridge Project F i n a l Environmental Impact Statement Hydraulics Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation feasible. The project, as depicted in preliminary the preferred alternative, a detailed hydraulic design, shows between a 0.02-foot decrease in analysis of the bridge would be required. This base flood elevation and a 0.08-foot net rise in analysis would model the effects of the project on base flood elevation (with a 2.81-foot net rise for the elevation of the river during the 100-year Alternative B with the temporary detour bridge base flood event to determine whether the option during construction only). During and bridge would increase floodwater elevations. following final design, the project would be Approval might require seeking a Letter of Map brought into conformity with all applicable state Revision from the City of Portland and FEMA. floodplain protection standards. All project facilities located within floodplains would be 3.14.5 Summary of Alternatives by designed to comply with federal, state, and local Differentiating Hydraulics regulations. During subsequent design efforts for Impact

TABLE 3.14-1 Summary of Hydraulic Conditions by Alternative, Bridge Type, and Bridge Foundation Method Maximum Change in Change in Average Velocity from WSE from No Velocity at No Build Alternative, 100-Year Build Bridge Alternative Bridge Type, and Flood WSE Alternative (feet per (feet per Bridge Foundation Method (feet) (feet) second) second) No Build Alternative 33.91 NA 7.33 NA Alternative A—Cable-stayed Bicycle/ 33.97 +0.06 7.59 0.26 Pedestrian Bridge Alternative A—Stress-ribbon Bicycle/ 33.98 +0.07 7.59 0.26 Pedestrian Bridge Alternative B—Rehabilitation 33.94 +0.03 7.60 0.27 Alternative B with temporary detour 36.42 +2.81 8.33 1.00 bridge (during construction only) Alternative C—Through-arch 33.93 +0.02 7.50 0.17 Alternative D—Deck-arch 33.91 0.00 7.33 0.00 Alternative D—Delta-frame 33.89 -0.02 7.14 -0.19 Alternative E—Box-girder 33.93 +0.02 7.56 0.23 Alternative E—Through-arch 33.93 +0.02 7.50 0.17

Alternative D Refined— Cofferdam 33.92 +0.01 6.78 -0.55 Deck-arch Perched 33.99 +0.08 6.77 -0.56

Alternative D Refined— Cofferdam 33.90 -0.01 6.78 -0.55 Delta-frame Perched 33.99 +0.08 6.77 -0.56

Note: Cofferdam and perched are construction methods for bridge foundations (see Section 2.3). NA = not applicable WSE = water surface elevation

Sellwood Bridge Project Final Environmental Impact Statement 3-175 Aquatic Resources Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

3.15 Aquatic Resources Aquatic Resources Summary

3.15.1 Affected Environment Adverse impacts to aquatic resources from the Build alternatives could include direct The following resources were used to identify the removal of in-stream habitat and loss of aquatic resources in the project area: riparian vegetation. Best Management Practices (BMPs) would be implemented to  Federal Emergency Management Agency minimize or alleviate temporary impacts. In flood maps (2004) addition, topographic contours would be restored and disturbed surfaces would be  Oregon Department of Fish and Wildlife stabilized and revegetated with native (ODFW) Willamette River fish study (2005) species.

 ODFW Willamette Falls fish counts (2007) placed materials (such as rip-rap, piers, and piles) provides habitat to salmonid predators (non-native  Oregon Natural Heritage Information Center fish). However, the Willamette River in the project and StreamNet database search for rare, area has some of the highest concentrations of threatened, and endangered plant and animal remaining beach habitat, off-channel habitat, riparian species within the Sellwood Bridge vicinity area, mature forest, and cold-water tributary (2007) confluence areas because the west-side of the  Published literature of biological resources in Willamette River is relatively undeveloped and has the Willamette Valley been maintained as a natural area.

 U.S. Fish and Wildlife Service (USFWS) The lower Willamette River is low gradient and species list for Multnomah County averages a drop of 2.5 feet per mile (Altman et al., 1997). Flow in the river has been affected  Willamette Restoration Initiative Draft by impoundments on its major tributaries, which Willamette Subbasin Plan (2004) have reduced winter and spring flood peaks and In addition to reviewing this information, a site visit increased summer base flows compared to the was conducted to observe riparian and channel past. Because of these actions, significant amounts characteristics of the Willamette River within the of shallow-water, floodplain, and off-channel project study area. The purpose of the visit was to habitats have been lost, resulting in insufficient characterize and verify the potential riparian and amounts of key habitat available for the migration in-water habitat features identified during the and rearing stages of Chinook salmon, coho review of available information. salmon, and cutthroat and steelhead trout using the lower river (Altman et al., 1997). Habitat in the Project Vicinity Substantial pollution to the lower Willamette The Willamette River between Willamette Falls and River occurred during the 1900s, up to the mid- the mouth of the Willamette River at the Columbia 1900s. Raw sewage disposal and industrial River has been highly straightened, channelized, activities led to increased fecal coliform levels, dredged, and filled. In general, it has been narrowed nutrient loading, biochemical oxygen demand, and and deepened. The use of rip-rap and other primary production (eutrophication) (Oregon structures along the banks, especially in the vicinity Department of Environmental Quality [DEQ], of downtown Portland, has resulted in the loss of 2007). Since the 1950s, water quality important natural channels, minimizing the improvements have been documented as a result interaction between the river, the riparian area, and of conservation efforts outlined in The Oregon floodplain vegetation. In addition, the presence of Plan for Salmon and Watersheds (Oregon

3-176 Sellwood Bridge Project Final Environmental Impact Statement Aquatic Resources Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

TABLE 3.15-1 Seasonal Average Water Quality Index Results for the Lower Willamette Basin (Water Year 1986-1995) Scores

Minimum Storet River Summer FWS Seasonal Site Numbera Mile Averageb Averagec Averaged Johnson Creek at SE 17th Avenue (Portland) 404000 0.2 26 30 26 Willamette River at Hawthorne Bridge (Portland) 402288 13.2 79 74 74 Willamette River at SP&S Railroad Bridge (Portland) 402000 7.0 74 75 74 a U.S. Environmental Protection Agency (EPA) Storage and Retrieval database (STORET) b Summer: June–September c FWS (Fall, Winter, and Spring): October–May d Scores—Very Poor: 0-59, Poor: 60-79, Fair: 80-84, Good: 85-89, Excellent: 90-100 SP&S = Spokane, Portland and Seattle Source: DEQ, 2008

Watershed Enhancement Board, 1998). historically was the location of some of the largest However, water quality in the lower Willamette chum populations in the Lower Columbia River. is still considered poor (Table 3.15-1). In the recent past, as a result of human influences In general, the aquatic fish habitat in the lower on the river, the lower Willamette River has Willamette River is poor for salmon and most primarily been considered a migration corridor. other native fish species (discussed in the next Recent studies have documented the presence subsection), but it is improving over recent past and growth of juvenile salmonids in the lower conditions. Historically, the lower Willamette River Willamette River, specifically along nearshore was a major rearing area for salmon and trout. areas (ODFW, 2005). The lower Willamette According to the City of Portland, the project area River has been designated as critical habitat for Anadromous fish are those that spend steelhead and Chinook salmon. all or part of their adult life in the sea and return to freshwater streams and Willamette River Fish Species rivers to breed, such as Pacific salmon The lower Willamette River contains nearly 50 fish species and Pacific lamprey. species, almost a third of which are non-native to Anadromous fish are born in the Willamette River. This section provides general freshwater streams and, after 2 to background information on the major categories of

Cycle 5 years, they migrate through the estuaries to the Pacific Ocean, where fish (including federal and/or state threatened and they grow in the nutrient-rich estuary endangered species; other game species; resident and ocean water. After 1 to 4 years, species; and non-native species) and fish population Anadromous Fish Life they return to their native streams to abundance occurring within the project action area. reproduce and die.

Sellwood Bridge Project Final Environmental Impact Statement 3-177 Aquatic Resources Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

The Endangered Species Act (ESA) and the Clean Water Act (CWA) are federal laws. As a procedural requirement, federal agency actions such as authorizing a permit or providing funding for a project must conduct National Environmental Policy Act (NEPA) compliance reviews. Where ESA-listed species are present, or could potentially be present, the federal action serves as a nexus for ESA Section 7 consultation with the National Marine Fisheries Service (NMFS) and/or the U.S. Fish and Wildlife Service (USFWS), which have jurisdiction over ESA-listed threatened and endangered species. Species potentially affected by the Sellwood Bridge project include steelhead, Chinook, coho salmon, and green sturgeon (Southern Distinct Population Segment [DPS] of the North American green sturgeon ) in the Willamette River. The CWA provides protection to wetlands and waterways. The U.S. Army Corps of Engineers (USACE) implements the law through a permit program that applies to activities Federal Regulations that fill wetlands or other jurisdictional waters. Permits often require mitigation for unavoidable impacts to achieve no net loss of wetland habitat. Please see the Biological Resources Technical Report (CH2M HILL, 2008c, updated in 2010) for more information on relevant state regulations.

Salmonids in the lower Willamette River, lower Willamette River. Critical habitat is a term including those listed as Threatened or used in the ESA to describe certain areas that Endangered have been designated as critical to the survival of Pacific salmon, also known as salmonids, occur in a species. Such a classification may restrict certain the lower Willamette River. Pacific salmon are land use activities within designated areas. important fish species as they provide for a substantial recreational and commercial fishery in Other Native Anadromous Fish Species the Northwest. Specifically, four species of In addition to salmonids, the lower Willamette anadromous salmonids occur at certain times River contains other important anadromous during the year in the lower Willamette River. species, including the Pacific lamprey (Lampetra These species are coho salmon (Oncorhynchus tridentatus) and eulachon smelt (Thaleichthys kisutch), Chinook salmon (O. tshawytscha), pacificus). The Pacific lamprey is listed as a Species steelhead trout (O. mykiss), and cutthroat trout of Concern under the ESA and as a Vulnerable (O. clarki). Of these, the stocks of coho, Chinook, species by the State of Oregon. The Pacific and steelhead that occur in the lower Willamette lamprey and salmonids have similar habitat River are listed as threatened under the federal requirements. They both require gravel riffles for Endangered Species Act (ESA). They were spawning and low velocity backwaters or eddies originally listed by the National Marine Fisheries for rearing. Pacific lamprey occur in the river Service (NMFS) in 1999, and were reaffirmed as year-round as larvae; adults can migrate back for threatened species in 2005 and 2006. Cutthroat spawning in either the fall or the spring, with trout in the lower river is currently considered a spawning occurring in April. candidate species for federal listing. Tables 3.15-2 Eulachon smelt are proposed for listing as and 3.15-3 show the timing of specific lifestage threatened. The smelt provide an important events (rearing, spawning, etc.) that occur in the recreational fishery in the lower Columbia and lower river for each of the species of salmonids. Willamette rivers. Eulachon smelt generally The lower Willamette River is designated as spawn in rivers that are glacier-fed and/or have critical habitat for both the Chinook and peak spring freshets. These freshets rapidly move steelhead stocks that occur in the river. Critical eggs and larvae to estuaries. Smelt enter the habitat for coho salmon is currently under lower river for spawning from February to May. development and may eventually include the

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TABLE 3.15-2 Willamette River Mouth to Willamette Falls—Resident Salmonid Species Life History and Timing Life Stage/Activity/Species Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec

Adult Fluvial or Adfluvial/ Migration

Cutthroat trout

Adult/Spawning

Cutthroat trout

Adult/Sub-Adult Rearing

Cutthroat trout

Egg Incubation through Fry Emergence

Cutthroat trout

Juvenile/Rearing

Cutthroat trout

Juvenile/Sub-Adult Migration

Cutthroat trout Represents periods of peak use Represents lesser level of use Represents periods of presence, either with no level of use OR uniformly distributed level of use indicated

Sellwood Bridge Project Final Environmental Impact Statement 3-179 Aquatic Resources Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

TABLE 3.15-3 Willamette River Mouth to Willamette Falls—Anadromous Species Life History and Timing Life Stage/Activity/Species Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec Adult /Upstream Migration

Winter steelhead

Summer steelhead

Spring Chinook salmon

Cutthroat trout —sea-run

Fall Chinook salmon

Coho salmon

Adult/Holding

Winter steelhead

Summer steelhead

Spring Chinook salmon

Cutthroat trout—sea-run

Fall Chinook salmon

Coho salmon

Adult/Spawning

Winter steelhead

Summer steelhead

Spring Chinook salmon

Cutthroat trout—sea-run

Fall Chinook salmon

Coho salmon

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TABLE 3.15-3, cont. Willamette River Mouth to Willamette Falls—Anadromous Species Life History and Timing

Life Stage/Activity/Species Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec

Egg Incubation through Fry Emergence

Winter steelhead

Summer steelhead

Spring Chinook salmon

Cutthroat trout—sea-run

Fall Chinook salmon

Coho salmon

Juvenile/Rearing

Winter steelhead

Summer steelhead

Spring Chinook salmon

Cutthroat trout—sea-run

Fall Chinook salmon

Coho salmon

Juvenile/Downstream Migration

Winter steelhead

Summer steelhead

Spring Chinook salmon

Cutthroat trout—sea-run

Fall Chinook salmon

Coho salmon Represents periods of peak use Represents lesser level of use Represents periods of presence, either with no level of use OR uniformly distributed level of use indicated

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The young leave the river shortly after hatching unless the extent of the work was such that a as larvae. Biological Assessment and consultation with the USFWS and NMFS required other conservation Other Protected Fish Species The green sturgeon (Acipenser medriostris) and mitigation measures. In most cases, (Southern Distinct Population Segment [DPS] of maintenance activities would not cause additional adverse impacts. No additional adverse impacts the North American green sturgeon), which is would be expected to occur to any aquatic federally listed as threatened, is found in the tidal resources under the No Build Alternative. waters of the Columbia River system, including the Lower Willamette River below Willamette 3.15.3 Build Alternatives Falls. The project area is currently proposed, but Environmental not currently designated as, critical habitat for the Consequences North American green sturgeon. Impacts and Mitigation Common to Non-native Fish Species All Build Alternatives There are more than 20 non-native fish species in The Build alternatives have been designed to the lower Willamette and Columbia rivers, many avoid impacts to aquatic resources to the of which are popular game fish (Farr and Ward, maximum extent practicable. Potential impacts 1993; Sytsma et al., 2004). Walleye (Stizostedion from the Build alternatives would primarily occur vitreum), smallmouth bass (Micropterus dolomieu), from short-term or temporary effects during largemouth bass (Micropterus salmoides), and construction (in-water excavation and American shad (Alosa sapidissima) are examples construction activities, including hydroacoustic of popular non-native game fisheries in the impacts), and long-term and indirect effects from lower Willamette River. Despite their operation (increase in impermeable surface area). recreational and economic benefits, non-native fish species can have detrimental impacts on Direct Impacts the native fish due to predation and Permanent Direct Impacts. Permanent direct impacts could include direct removal of in-stream competition for food and habitat resources. habitat, loss of riparian vegetation, an increase in Other Willamette River Species impermeable surface area, and an increase in the The Steller sea lion, which is federally listed as quantity of stormwater. threatened, is found in the tidal waters of the Piers in the River. The existing river crossing Columbia River system, including the Lower has five piers below the ordinary high water Willamette River below Willamette Falls. elevation. Each Build alternative design with a replacement-bridge type would also have pier 3.15.2 No Build Alternative columns below the ordinary high water elevation. Environmental Table 3.15-4 shows the number of in-water piers Consequences for each Build alternative. For Alternatives A The No Build Alternative would, among other and B, all five of the existing bridge piers would activities, replace the west-side bridge approach. be widened and strengthened. The maximum Maintenance activities could potentially expose spans for each alternative would be large enough aquatic resources to harmful materials entering to provide the required 200 feet of horizontal the Willamette River. Best management practices navigation clearance. (BMPs) employed for maintenance activities would be expected to protect aquatic resources

3-182 Sellwood Bridge Project Final Environmental Impact Statement Aquatic Resources Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

Temporary construction impacts might also TABLE 3.15-4 Potential Riverine Impacts include direct mortality to native and non-native aquatic species. Sediment control plans, BMPs and In-water Piers project mitigation would minimize, to the extent (or Pier Rows) Alt. Bridge Type below OHWE practicable, these short-term impacts, so none of them is expected to have a permanent effect on Existing 5 aquatic habitat. Rehabilitated 5 Bridge The period of construction could result in the A Stress-Ribbon loss of individual fish protected under ESA. 4 Bike/Ped Bridge Because four species listed as threatened use the Total 9 project area, a Biological Assessment of the Rehabilitated preferred alternative is required for compliance 5 Bridge with Section 7 of the ESA. In January 2010, the A Cable-Stayed Biological Assessment (BA) was submitted to 4 Bike/Ped Bridge NMFS for a Biological Opinion. A Take Permit Total 9 would be required during construction. Rehabilitated B 11 Indirect Impacts. Potential indirect impacts to Bridge aquatic resource habitat from construction of any Double-Deck Steel C 5 of the Build alternatives might include the Through-Arch following: Deck-Arch 7 D Delta- Frame 8  Increased pollutant loading due to increased stormwater volume resulting from increased Steel Through- 4 impervious surface area. (However, increased E Arch stormwater treatment effectiveness and Box-Girder 2 efficiency would improve the overall water D Deck-Archa 3 quality of stormwater.) Refined a Bridge type evaluated for the project’s Biological  Water quality facilities would not treat Assessment as developed through coordination dissolved copper and zinc. The percent with ODOT, FHWA, and NMFS. increase in downstream concentrations OHWE = ordinary high water elevation yd3 = cubic yards would be on the order of 0.0001 to 0.0005 percent, which is immeasurable and Temporary Impacts, including Impacts of undetectable. In addition, the concentration the Temporary Detour Bridge. Potential levels would be well within water quality construction period impacts to aquatic resources standards. would be those associated with increases in  Hydrological changes due to increased turbidity; short-term sedimentation; temporary impermeable surface area in the lower bank instability; discharge of hazardous materials Willamette subbasin. (The negligible increase into the Willamette River; dewatering of pier in impermeable surface area would not have construction areas; and the temporary loss of any a measurable effect on hydrology of the riparian vegetation in each of the alternative lower Willamette River.) construction areas, including those for a temporary detour bridge that might be built.

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 Increased sedimentation and turbidity in the To assist the reader in evaluating the collective lower river. (However, mitigation should potential impact of these issues on aquatic eliminate the impact to aquatic resources.) resources, a sensitivity evaluation method was devised that weights the relative importance of  Minor improvement in riparian diversity due each of these factors and shows the minor to the removal of invasive and non-native differences between the Build alternatives. vegetation (such as Himalayan blackberry [Rubus armeniacus] and Japanese knotweed To obtain a sensitivity rating for each Build [Polygonum cuspidatum]) and replanting with a alternative, first a ranking based on a scale of 1 to diverse array of native overstory and 5 was given to each resource factor (with a understory vegetation within the area that ranking of 1 having the lowest impact). Then each would be cleared for the project, but factor was given a weighting based on its relative restored to compatible habitat on importance to the aquatic resource. The loss of completion. shallow-water near-shore habitat is considered the most important attribute and was given a Mitigation. Avoidance and minimization weighting factor of 4, followed by in-stream measures would be incorporated into the project habitat (weighting factor of 3), riparian vegetation to eliminate effects to aquatic species and their loss (weighting factor of 2), and increase in habitats. These measures would address in-water impervious surface area (weighting factor of 1). work, erosion control, containment of construction, handling of hazardous materials, and The overall Aquatic Resource Sensitivity Score disturbance of vegetation. BMPs would be for a particular Build alternative was then employed to avoid and minimize construction computed based on the following equation, which effects. As part of ESA consultation, ODOT, uses both the ranking and weighting factors: ODFW, NMFS, and USFWS would negotiate Aquatic Resource Sensitivity Score: more specific conservation measures for inclusion in final plans and specifications. Appendix G, a = 4 x Shallow-water habitat ranking Summary of Mitigation Measures and b = 3 x Total in-stream habitat ranking Environmental Commitments, provides a list of c = 2 x Vegetation reduction ranking d = 1 x Impervious surface area ranking proposed and committed avoidance, 10 minimization, and conservation measures. Overall Aquatic Resource Sensitivity Score = Alternative-specific Impacts and (a+b+c+d)/10 Mitigation Most Build alternatives would be similar in their Table 3.15-5 shows the overall Aquatic Resource impacts on aquatic resources. The following four Sensitivity Scores for each Build alternative. factors of habitat impacts combine to form the Alternative A aquatic impact on resources. Alternative A with the stress-ribbon  Shallow-water near-shore habitat loss (pier bicycle/pedestrian bridge design would have more area near-shore) adverse aquatic resource impacts than Alternative A with the cable-stayed bicycle/  In-stream habitat (pier area off-shore) pedestrian bridge design because of the location of piers in shallow-water and in-stream habitat.  Riparian vegetation loss Both have relatively low overall Aquatic Resource  Amount of impervious surface (water quality) Sensitivity Scores, which means that they would

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have relatively high overall impacts to attributes Sensitivity Score, though it would impact critical that influence aquatic resources. shallow-water habitat more than other designs.

Alternative B Alternative D Alternative B has a relatively low overall Aquatic The Alternative D deck-arch design would have Resource Sensitivity Score. Particularly, it would more adverse aquatic resource impacts than the have significant impacts to total in-water habitat Alternative D delta-frame design because of the and riparian vegetation loss. The temporary location of piers in shallow water. The deck-arch detour bridge was not rated because the analysis bridge has a low, and the delta-frame bridge has a was directed at permanent impacts. relatively low, overall Aquatic Resource Sensitivity Score, which means that they would Alternative C have higher overall impacts to attributes that The Alternative C through-arch design would influence aquatic resources. have a moderate overall Aquatic Resource

TABLE 3.15-5 Sellwood Bridge Build Alternatives Overall Aquatic Resource Sensitivity Scores Reduction Pier Area in Total Pier of Overall Critical Area of In- Vegeta- Total Aquatic Shallow- stream tion in Proposed Resources water Habitat Habitat Right-of- Imper- Sensitivity Alt. Bridge Type (acres) (acres) Way vious Area Scorea Rehabilitated Bridge Stress- 1 1 3 3 1.6 Ribbon Bike/Ped Bridge A Rehabilitated Bridge Cable- 2 1 3 3 2.0 Stayed Bike/Ped Bridge Temporary Detour Temporary detour bridge not included in permanent impacts calculation Bridge B Rehabilitated 4 2 1 2 2.6 Bridge Double-Deck Steel C 3 4 4 5 3.7 Through-Arch Deck-Arch 2 1 2 1 1.6 D Delta-Frame 2 3 2 1 2.2 Steel Through- 1 3 4 4 2.5 E Arch Box-Girder 5 5 4 4 4.7 D Deck-Arch b 3 2 5 1 2.9 Refined a The overall Aquatic Resource Sensitivity Score is on a scale of 1 (lowest sensitivity and highest impacts) to 5 (highest sensitivity and lowest impacts). For example, Alternative E (box-girder design) would have the highest overall Aquatic Resource Sensitivity Score and, therefore, the least overall impacts to attributes that influence in-stream habitat and aquatic resources. b Bridge type evaluated for the project’s Biological Assessment as developed through coordination with ODOT, FHWA, and NMFS.

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Alternative E has been designated in the Columbia River The Alternative E steel through-arch design estuary, but this action does not affect that scored in the middle, but lower than area and no destruction or adverse Alternative E with the box-girder design, modification of that critical habitat is primarily because of greater impacts to shallow- anticipated. water habitat.  The project “may affect, likely to adversely The Alternative E box-girder design would have affect” the following: the least overall impact to aquatic resources. However, while this Build alternative would have − Lower Columbia River coho salmon the least overall impact to aquatic resources, the Critical habitat for Lower Columbia River Build alternative with the least overall coho salmon is currently under development. environmental impacts (when considering If critical habitat is designated in the lower wetlands, water resources, rare plants, fisheries, Willamette River for Lower Columbia River and wildlife) could be one of the other Build coho salmon, the project would be “not likely alternatives. to destroy or adversely modify designated critical habitat.” Alternative D Refined (Preferred Alternative)  Eulachon are proposed as threatened. It is Alternative D Refined with a deck-arch bridge likely that eulachon will be able to avoid any type would have a moderate overall Aquatic noise or disturbance caused by divers, Resource Sensitivity Score. It would score vessels, or equipment during project activities moderately for in-water habitat and pier area, but and that BMPs for hydroacoustic disturbances would have the highest score (least impacts) for would minimize potentially harmful sound riparian area impacts. levels. Therefore, proposed construction and Multnomah County prepared a BA to fulfill its operations and maintenance of the preferred obligations under Section 7 of the ESA. The BA alternative is “not likely to jeopardize the was submitted to NMFS in January 2010. continued existence” of the eulachon Consultation with NMFS on the BA is ongoing. population in the Willamette River near the The following items summarize the BA finding of Sellwood Bridge. In the event that eulachon effect. were eventually listed as threatened, the proposed project “may affect, likely to  The project “may affect, likely to adversely adversely affect” eulachon. affect” and is “not likely to destroy or adversely modify designated critical habitat”  Potential undesirable influences on salmon, for the following: steelhead trout, and green sturgeon are anticipated to be primarily associated with − Lower Columbia River Chinook salmon hydroacoustic disturbances during pile driving − Lower Columbia River steelhead trout and a permanent loss of habitat. This habitat − Upper Willamette River Chinook salmon loss is related to piers in the channel of the − Upper Willamette River steelhead trout river. In addition, the implementation of  The project “may affect, likely to adversely cofferdams (conventional cofferdams for bridge footings and perched footings and affect” the following: cofferdams) during construction could strand − Southern Distinct Population Segment of salmon or steelhead trout, causing fish North American green sturgeon. Critical salvages to be conducted and distressing habitat for North American green sturgeon those fish.

3-186 Sellwood Bridge Project Final Environmental Impact Statement Aquatic Resources Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

The Federal Highway Administration (FHWA) The project team worked with Portland Parks & entered into formal consultation with NMFS in Recreation (PP&R) and the Portland Bureau of January 2010. NMFS will issue a Biological Environmental Services (BES) to identify Opinion prior to a Record of Decision. The mitigation for natural resource impacts (including Biological Opinion will state the opinion of NMFS aquatic impacts). Multnomah County and the City on whether the project would jeopardize the of Portland have agreed to: continued existence of listed species or result in the destruction or adverse modification of critical  Within Willamette Moorage Park, replace the habitat. Based on discussions and information existing Stephens Creek culvert (which is provided at pre-consultation meetings with beneath the Willamette Shoreline railroad, the NMFS, a jeopardy determination is not new multi-use trail, and the Willamette anticipated. It is expected that the Biological Moorage Park and Macadam Bay Club Opinion will include an incidental take statement, driveway) with a fish-and-wildlife-friendly along with reasonable and prudent measures to passage. Figure 3.9-2 shows the general minimize impacts on listed species. location of this passage. Mitigation. The Biological Opinion will include  Within Powers Marine Park, design and reasonable and prudent measures to minimize implement stream restoration along two impacts on listed species. Table G-2 in streams to provide an off-river habitat for Appendix G provides a list of proposed juvenile salmonids. Figure 3.9-2 shows the avoidance, minimization, and conservation general location of this passage. measures.

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3.16 Vegetation Vegetation Summary

3.16.1 Affected Environment Each Build alternative would directly impact Field investigations were conducted to identify Lowland Conifer-Hardwood Forest and and map major plant communities occurring Westside Riparian habitat plant communities. Neither rare plants nor rare within the study area and to determine the plant habitats were observed in the study presence of rare plants. area. The Build alternatives would result in the removal of noxious weeds. Mitigation  Plant communities are identified and using best management practices would help described according to Wildlife-Habitat to reduce pollutant loading to the Relationships in Oregon and Washington Willamette River. Replanting disturbed (Johnson and O’Neil, 2001). riparian areas with native vegetation and increased treatment of stormwater would  A list of all rare plant species potentially improve water quality. occurring within the project area was compiled from the List of Threatened, The riparian community represents a remnant of Endangered and Candidate Species for what was historically a broad, more or less Multnomah County (U.S. Fish and Wildlife continuous corridor of riparian vegetation along Service [USFWS], 2008) and from Oregon the river. Impacts associated with urbanization Natural Heritage Information Center have resulted in the removal of much of the (ONHIC) records of species observations historic riparian corridor in the lower Willamette within 2 miles of the proposed project area River basin. The riparian corridor in the lower (ONHIC, March 2008). Willamette River is fragmented. The southwest Portland riverbank consists of 35 acres of fish and In conjunction with the plant-community field wildlife habitat that extends along 7,000 linear surveys, complete surveys were conducted to feet of contiguous habitat from Willamette Park identify plant species listed as noxious weeds by through Powers Marine Park. The Sellwood the Oregon Department of Agriculture (ODA) Bridge project would impact the riparian areas in Plant Division: Weed Control Program. two of four remaining natural areas along the Plant Communities Willamette River within the City of Portland. Two primary plant community types were Urban forests provide food and shelter for identified: Westside Riparian and Westside various groups of birds, mammals, fish, and other Lowland Conifer-Hardwood Upland Forest vertebrates. They also provide shade and cool (Lowland Conifer-Hardwood Forest). The watercourses, and mitigate noise and dust. Air dominant vegetation community within the study quality is improved by oxygen production, area is Westside Riparian. The riparian pollution absorption, and carbon sequestration community is dominated by black cottonwood the vegetation provides. Trees help to conserve (Populus balsamifera) and Pacific Willow (Salix energy by indirectly mitigating climatic effects lasiandra) in a narrow strip along the river with because they provide evaporative cooling, some Columbia River Willow (Salix fluviatilis), windbreak, and shading functions, and they which have limited distribution within the city of reduce human dependence on power generation. Portland. Upslope of the riparian areas, the plant Urban forests contribute to water quality and community shifts to a Douglas-fir (Pseudotsuga quantity improvement through stormwater menzeisii)/bigleaf maple (Acer macrophyllum) control, attenuation of peak flows, maintenance upland forest, which is dominated by Douglas-fir. of base flow, erosion control, and rainfall. The

3-188 Sellwood Bridge Project F i n a l Environmental Impact Statement Ve g e t a t i o n Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation essential benefits associated with trees in terms Rare Plants of human physical, mental, and social health are In the field investigations, no rare plants identified not to be overlooked. as state- or federal-level endangered, threatened, or candidate species were observed at any of the Noxious Weeds sites. In addition, no habitat was identified within Several populations of noxious weeds or other the project area with the potential to support any listed weed species were identified in the study rare plant species. area. Of particular concern are several invasive species present in relatively large infestations 3.16.2 No Build Alternative within the study area. These include Japanese knotweed (Polygonum cuspidatum), Himalayan Environmental blackberry (Rubus armeniacus), English ivy (Hedera Consequences helix L.), western clematis (Clematis ligusticifolia The No Build Alternative would have no direct Nutt.), and Scotch broom (Cytisus scoparius). impacts to vegetation communities or rare plants. Other noxious weeds that are present include Existing vegetation communities would remain poison hemlock (Conium maculatum), Canada and undisturbed. No enhancement of existing bull thistle (Cirsium arvense, C. vulgare), tansy communities or removal of invasive species ragwort (Tanacetum jacobaea), and St. Johnswort would occur unless the extent of the (Hypericum perforatum). maintenance activities triggered consultation under the federal Endangered Species Act (ESA), The City of Portland has removed invasive and enhancement and weed removal were vegetation from Powers Marine Park and required. Willamette Moorage Park, and has started revegetation work to enhance vegetation at these 3.16.3 Build Alternatives parks. Environmental Consequences Riparian communities are plant Impacts and Mitigation Common to communities that are alongside rivers All Build Alternatives or, sometimes, other water bodies like lakes. Riparian communities are Direct Impacts. The Build alternatives would important because they: result in permanent impacts to both Lowland • Provide food, shelter, and Conifer-Hardwood Forest and Westside Riparian migration corridors for terrestrial habitats. Removal of mature vegetation could and aquatic wildlife result in reduced stream flows, reduced • Slow overland runoff by trapping groundwater recharge, and increased stormwater sediment, filtering out pollutants, runoff volumes. These effects might be partially and reducing flood damage offset by upland and riparian mitigation plantings • Dissipate stream energy resulting in the project area. in less soil erosion and a reduction in flood damage Impacts to Westside Riparian habitat would be • Contribute nutrients from 0.5 acre for Alternatives A, C, E, and D Refined; Riparian Communities terrestrial vegetation (such as leaf 0.6 acre for Alternatives B and D; and 0.7 acre litter and insect drop) to aquatic for Alternative B with the temporary detour food webs bridge. Riparian habitat in the lower Willamette • Contribute wood debris, which is Basin is highly fragmented because of urban important for maintaining geomorphology development. Remnant Westside Riparian habitat

Sellwood Bridge Project F i na l Environmental Impact Statement 3-189 Ve g e t a t i o n Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation generally consists of narrow strips of vegetation  A decrease in foraging, refuge, and habitat immediately adjacent to rivers and streams. The quality as a result of an increase in human potentially impacted riparian habitat in the vicinity activity (that is, because of new and direct of the proposed Build alternatives would be part access) in the area of approximately 3 acres of narrow, somewhat fragmented, riparian habitat, predominantly along  An increase in habitat diversity as a result of the west bank of the river. Other nearby riparian the removal of invasive and non-native habitat includes Oaks Bottom and the Ross vegetation, and replanting with a diverse Island, Hardtack, and East Island Complex. array of native overstory and understory Together, these areas, which account for vegetation approximately 150 acres of riparian habitat, Mitigation. Mitigation of construction and comprise most of the remaining riparian habitat operational impacts would predominantly be in the southern portion of the lower Willamette achieved through incorporating best management Basin. practices and environmental criteria into pre- Impacts to Lowland Conifer-Hardwood Forest construction planning and design, and by good would range from 8.8 acres for Alternative C to construction and maintenance practices. 12.0 acres for Alternative D Refined. The Construction of all Build alternatives would potentially impacted Lowland Conifer-Hardwood increase impervious surface area and remove Forest is part of an approximately 200-acre patch mature trees and understory vegetation. Without of forested habitat that extends west from the mitigation (such as the use of best management Willamette River uphill to SW Palatine Road and practices), the project could result in increased from River View Cemetery on the north to the pollutant loading to the Willamette River. campus of Lewis and Clark College on the south. Other significant forested areas in the vicinity Mitigation planting would help restore some of include an approximately 700-acre forest just the functionality to the riparian area adjacent to southwest of the 200-acre forest and Forest Park, the Willamette River. Replanting disturbed which begins approximately 4 miles northwest of riparian areas with native vegetation and the existing Sellwood Bridge. increased treatment of stormwater in accordance with National Marine Fisheries Service (NMFS) Direct benefits to vegetative communities would guidance and City of Portland requirements result from the removal of Himalayan blackberry, would reduce the pollutant loads that would Scotch broom, and Japanese knotweed within the result from construction of the Build alternatives riparian areas. and would minimize increases in the Willamette Indirect Impacts. Potential indirect impacts to River stormwater pollutant loading. biological resource habitat that would occur as a The planting of small trees cannot truly mitigate result of the Build alternatives could include: trees that are 20 to 40 years old or more. The  An increase in water temperature as a result project team worked with Portland Parks & of tree removal and increase in impervious Recreation (PP&R) and the Portland Bureau of surface Environmental Services (BES) to identify mitigation within Powers Marine Park and  A reduction in natural resources as a result Willamette Moorage Park. Multnomah County of an increase in mobility and access in and the City of Portland have agreed to the area the following:

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 Within Willamette Moorage Park, construct Westside Riparian habitat, and would remove sloped, stepped, vegetated walls along a new 0.1 acre of noxious weeds. No impacts would be multi-use trail, where feasible, to minimize anticipated to rare plants. visual and aesthetic impacts to the park, and to provide for wildlife use and passage. Alternative B Alternative B would impact 9.4 acres of Lowland  Within Powers Marine Park, design and Conifer-Hardwood Forest and 0.6 acre of implement stream restoration along two Westside Riparian habitat), and would remove streams to provide an off-river habitat for 0.1 acre of noxious weeds. No impacts would be juvenile salmonids. Figure 3.9-2 shows the anticipated to rare plants. general location of this passage. Temporary Detour Bridge Option Additional mitigation for vegetation impacts Alternative B with a temporary detour bridge outside Powers Marine Park and Willamette would impact 9.4 acres of Lowland Conifer- Moorage Park would be required to meet City of Hardwood Forest and 0.7 acre of Westside Portland regulations. After the design of the Riparian habitat. (The temporary detour bridge selected alternative had progressed to a level would impact 0.1 acre of Westside Riparian where more specific impacts could be identified, habitat. This alternative would remove 0.1 acre of the parties would identify and agree to this noxious weeds No impacts would be anticipated mitigation. This mitigation would be consistent to rare plants. with City of Portland regulations for impacts Alternative C within the applicable base zones and Greenway Alternative C would impact 8.8 acres of Lowland and Environmental overlay zones to meet City of Conifer-Hardwood Forest and 0.5 acre of Portland regulations. This mitigation might Westside Riparian habitat, and would remove include: 0.3 acre of noxious weeds. No impacts would be  Planting native overstory and understory anticipated to rare plants. vegetation and removing invasive, non-native Alternative D vegetation Alternative D would impact 9.4 acres of Lowland Conifer-Hardwood Forest and 0.6 acre of  Placing some of the removed trees in open Westside Riparian habitat, and would remove areas to provide future dead-wood habitat 0.2 acre of noxious weeds. No impacts would be  Reducing form, texture, or color contrasts in anticipated to rare plants. cut and/or fill slopes Alternative E  Minimizing clearing for construction and Alternative E would impact 9.8 acres of Lowland preserving existing stands of mature trees Conifer-Hardwood Forest and 0.5 acre of and other attractive natural vegetation to the Westside Riparian habitat, and would remove greatest extent possible 0.1 acre of noxious weeds. No impacts would be anticipated to rare plants.  Implementing avoidance, minimization, and conservation measures (see Appendix G) Alternative D Refined (Preferred Alternative) Alternative-specific Impacts Alternative D Refined would impact 12.2 acres of Alternative A Lowland Conifer-Hardwood Forest and 0.5 acre Alternative A would impact 9.6 acres of Lowland of Westside Riparian habitat, and would remove Conifer-Hardwood Forest and 0.5 acre of 0.2 acre of noxious weeds. No impacts would be anticipated to rare plants.

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Immediately south of the Macadam Bay Club/ Willamette Moorage Road access driveway on the east side of OR 43, the City of Portland would conduct tree clearing operations to achieve the minimum clear sight distance of 470 feet. Approximately 0.2 acre of land would be cleared to improve sight distance (safety for vehicles turning into and out of this driveway).

3.16.4 Summary of Alternatives by Differentiating Vegetation Impact

TABLE 3.16-1 Summary of Alternatives by Differentiating Vegetation Impact No D Impact Type Build A B B/TDB C D E Refined Lowland Conifer- Hardwood Forest (acres) 0 9.6 9.4 9.4 8.8 9.4 9.8 12.2 Westside Riparian Habitat (acres) 0 0.5 0.6 0.7 0.5 0.6 0.5 0.5 Noxious Weeds Removal (acres) 0 0.1 0.1 0.1 0.3 0.2 0.1 0.2 Rare Plants (acres) 0 0 0 0 0 0 0 0 B/TDB = Alternative B with temporary detour bridge

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3.17 Wetlands Wetlands Summary

3.17.1 Affected Environment Alternatives A, B, C, D, and E would fill 0.1 acre of wetlands. Mitigation would The following resources were used to identify the restore historical wetlands or enhance presence of wetlands in the project area: existing wetlands at another location in the general vicinity of the bridge (such as • U.S. Geological Survey (USGS) Stephens Creek, Oaks Bottom, or South Topographic Map. This map identifies two Waterfront areas). The preferred alternative smaller streams in the study area: Stephens (Alternative D Refined) would not fill any Creek and an unnamed stream. Stephens wetlands. Creek crosses the northern end of the study area, west of the river. An unnamed northern portion of the study area between intermittent stream was shown on the USGS the river and the railroad tracks. Two other map approximately 600 feet south of the soils may contain inclusions of soils listed Sellwood Bridge, west of the river. No as hydric. evidence of this stream was observed during • Stephens Creek Wetlands Delineation the field visit. The USGS map shows no water Map. Portland Bureau of Environmental features east of the river within the proposed Services completed this wetlands delineation project area. map with Oregon Department of State Lands • National Wetlands Inventory (NWI) Map. concurrence. The NWI map identifies two riverine features Field visits were conducted to collect data and to and one wetland within the study area: verify the presence or absence of the potential Willamette River and Stephens Creek. A wetlands and water features identified during the wetland is shown at the terminus of Stephens review of the information listed above. The field Creek on the Willamette River floodplain. team verified the presence of a wetland at the • Soil Survey Map. The soil survey map northern end of the study area. No other indicates eight soil types within the study wetlands were identified. Table 3.17-1 area. One soil is listed as a hydric soil, which summarizes the characteristics of this wetland could include wetland area soil. Hydric soil is (called the Stephens Creek Wetland in this Final located in the study area under the eastern Environmental Impact Statement [FEIS]). end of the Sellwood Bridge and in the Figure 3.17-1 shows the location of this wetland.

There are two different approaches used by biologists to assess wetlands: the Cowardin and the Hydrogeomorphic (HGM) approaches. The Cowardin approach imposes boundaries on natural aquatic ecosystems for the purposes of inventory, evaluation, and management. This approach has a hierarchical structure for five major systems—Marine, Estuarine, Riverine, Lacustrine, and Palustrine. The five major systems are distinguished by a variety of hydrologic, geomorphologic, chemical, and biological characteristics. Subsystems and classes are defined by water regime and substrate. Classes and lower levels introduce vegetation life form and additional detail in vegetation, substrate, water-chemistry, and soil characteristics.

Assessment The HGM approach is a wetland assessment procedure based on three fundamental factors that influence how wetlands function—position in the landscape (geomorphic setting), water source (hydrology), and the flow and fluctuation of the water once in the wetland Wetland Classification (hydrodynamics). The HGM approach (1) classifies wetlands based on their differences in functioning, (2) defines functions that each class of wetland performs, and (3) uses references to establish the range of functioning of the wetland.

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TABLE 3.17-1 Stephens Creek Wetland Type Description Wetland Classification Cowardin Palustrine Forested Hydrogeomorphic Riverine Flow-Through (HGM) Wetland Quality Vegetation Site has less than 40 percent nuisance or exotic vegetation. Hydrology Road and path construction has altered the hydrology on the site, but this could easily be reversed. Stream is highly incised. Other Well developed native overstory, predominantly mature black cottonwood. Understory dominated by reed canarygrass. Channel of Stephens Creek highly incised. Good opportunity for restoration of connectivity between stream and wetland and enhancement of vegetation through control of reed canarygrass.

FIGURE 3.17-1 Location of Stephens Creek Wetland

3-194 Sellwood Bridge Project Final Environmental Impact Statement Wetlands Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

A small area (approximately 1 acre) of Pacific Alternative-specific Impacts and Willow Shrub Swamp habitat exists within the Mitigation Westside Riparian Wetland Habitat along the Alternative A west bank of the Willamette River at the north Direct Impacts. Reconfiguring the access point end of the project area. It is part of the Stephens to Macadam Bay Club and Willamette Moorage Creek Wetland. Pacific Willow Shrub Swamp is Park from OR 43 would permanently fill 0.1 acre identified in the 2003 Oregon Natural Heritage of wetland at Stephens Creek (Table 3.17-2). No Plan (Natural Heritage Advisory Council to the temporary impacts to wetlands would be State Land Board, 2003) as a plant community or anticipated. ecosystem of moderate conservation concern. However, distribution of this habitat within the Indirect Impacts. Potential indirect impacts to city of Portland is very limited due to extensive wetland habitat from Alternative A might include loss of wetlands within the city limits. an increase in habitat diversity from removing invasive and non-native vegetation (such as reed 3.17.2 No Build Alternative canarygrass [Phalaris arundinacea.]) and replanting Environmental with a diverse array of native wetland vegetation. Consequences Temporary water quality impacts would be addressed in erosion and pollution control plans. The No Build Alternative would have no negative Stormwater impacts resulting in potential water impacts to wetlands. The existing Stephens Creek quality and quantity impacts would be addressed wetland would be undisturbed. However, the No in stormwater mitigation plans. Build Alternative would not provide any enhancement of the wetland or adjacent Mitigation. Adverse unavoidable impacts are riparian areas. primarily related to construction impacts, mainly the construction of a new access point and 3.17.3 Build Alternatives driveway to the Macadam Bay Club and Environmental Willamette Moorage Park from OR 43. Consequences Conservation and mitigation measures for impacts would include the following sequentially Impacts and Mitigation Common to performed actions: All Build Alternatives • Avoid the impact altogether through design No impacts or mitigation are common to all Build modification or by not taking a certain action alternatives. or parts of an action.

• Minimize impacts through design modification

TABLE 3.17-2 Potential Impacts to Wetland Area and Functions with Alternatives A, B, C, D, and E Wetland Function

Wildlife Fish Area Site Habitat Habitat Water Quality Hydrologic Control (acres) Stephens This function NA Mitigation measures during This function is already 0.1 Creek would be construction would include impacted; mitigation would Wetland impacted. erosion control measures to provide water conveyance ensure there is no impact to resulting in no net loss of this function. this function. NA = not applicable

Sellwood Bridge Project Final Environmental Impact Statement 3-195 Wetlands Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

or by limiting the degree or magnitude of the impacts and mitigation as Alternative A. action and its implementation. Alternative C • To ensure that no accidental or indirect Alternative C would have the same wetlands impacts occur to wetlands outside the impacts and mitigation as Alternative A. proposed disturbance areas, clearly mark Alternative D wetland boundaries and use sediment fencing Alternative D would have the same wetlands or other erosion control methods to protect impacts and mitigation as Alternative A. the wetland. Alternative E • Employ sediment-containment methods Alternative E would have the same wetlands during construction of the new bridge piers impacts and mitigation as Alternative A. to minimize impacts to the waterway. To reduce potential impacts to fisheries, restrict Alternative D Refined in-water work to the Oregon Department of (Preferred Alternative) Fish and Wildlife (ODFW)-designated and Alternative D Refined would not fill any wetlands. National Marine Fisheries Service (NMFS)- Water quality impacts would be addressed in recognized summer in-water work window, erosion and pollution control plans to avoid unless authorized by NMFS. indirect wetlands impacts. Stormwater impacts resulting in potential water quality and quantity • Rectify the impact by repairing, rehabilitating, impacts would be addressed in stormwater or restoring the affected environment. mitigation plans.

• Compensate for the impact by restoring, This FEIS does not require a wetlands finding to creating, or enhancing wetlands. document the project’s compliance with Executive Order 11990 because the preferred Unavoidable impacts to wetlands would be alternative (Alternative D Refined) would avoid addressed, if possible, through restoration of direct wetlands impacts. affected wetland areas. Mitigation for permanent impacts to wetlands would be accomplished 3.17.4 Summary of Alternatives by through restoration of historical wetlands or enhancement of existing wetlands at another Differentiating Wetlands location in the general vicinity of the bridge, such Impact as at Stephens Creek, Oaks Bottom, or South Alternative D Refined is the only alternative that Waterfront areas. The project team would meet would have no impacts to wetlands. This result with Portland Parks & Recreation (PP&R) and was achieved by revising the alignment of the Portland Bureau of Environmental Services to access to Willamette Moorage Park and the identify appropriate mitigation sites that would be Macadam Bay Club. If any of the other accomplished either at the project site or nearby. alternatives had been preferred, it is likely that the same revisions would have been made. Alternative B Therefore, wetlands impacts are not a Alternative B would have the same wetlands differentiating impact among alternatives.

TABLE 3.17-3 Summary of Alternatives by Differentiating Wetlands Impact D Impact No Build A B C D E Refined

Wetland area filled (acres) 0.0 0.1 0.1 0.1 0.1 0.1 0.0

3-196 Sellwood Bridge Project Final Environmental Impact Statement W i l d l i f e Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

3.18 Wildlife Wildlife Summary

3.18.1 Affected Environment Adverse impacts to wildlife from any of the The following resources were used to identify the Build alternatives would include the direct presence of wildlife in the project area: removal of tree cover and vegetation. Compared to existing conditions,  Distribution, Habitat, and Natural History: Atlas construction of a Build alternative would remove permanently or disturb significantly of Oregon Wildlife (Csuti et al., 1997) between 10.0 and 11.7 acres of wildlife habitat. This permanent loss of habitat  Flood Insurance Study City of Portland, Oregon, would represent a permanent reduction in Multnomah, Clackamas, and Washington populations of species that depend on it. Counties (Federal Emergency Management The project would undertake restoration Agency [FEMA], 2004) measures within Willamette Moorage Park and Powers Marine Park. The intent would  Oregon Department of Fish and Wildlife be to benefit wildlife by increasing habitat. (ODFW) unpublished data (2007) Mitigation measures might encourage the return of wildlife species that have been rare  Unpublished Bald Eagle Nest Sites (ODFW, in the area. 2006).

 Database search for rare, threatened, and  Westside Riparian, which is directly alongside endangered plant and animal species within the river the Sellwood Bridge vicinity (Oregon Natural 1 Heritage Information Center, 2007)  Upland Habitats, which are above Riparian habitat  Draft Willamette Subbasin Plan (Northwest Power and Conservation Council, 2004)  Westside Lowland Conifer-Hardwood Forest2  Native Wetland, Riparian, and Upland Plant  Urban/Developed habitats Communities and Their Biota in the Willamette Valley, Oregon (Titus et al., 1996) Of the three habitat types in the project area, the Westside Lowland Conifer-Hardwood Forest is  U.S. Fish and Wildlife Service (USFWS) the most common. Though scattered throughout Species List for Multnomah County (2007) the area, the Urban/Developed habitat type is the most widely distributed, but least valuable to After reviewing available data and information, wildlife. The following subsections briefly describe project biologists conducted multiple site visits to the characteristics of these habitats. observe and document terrestrial habitat and wildlife. Westside Riparian Habitat Riparian habitats are those areas adjacent to Habitat in the Project Vicinity streams and rivers where the water and land Wildlife habitat is strongly related to vegetative resources interact. This habitat is characterized by communities. For this reason, the habitats wetland soils and occasional overbank riverine described subsequently are closely related to the flooding (because of excessive rainfall in a short vegetation communities discussed in Section 3.16, period of time). Riparian habitats along the Vegetation. One riparian and two upland wildlife- habitat-types were identified within 2 miles of the 1 existing Sellwood Bridge. The habitat types Upland habitat is the dry habitat along the sides of a river, riparian being the first upland zone. identified in the project area are: 2 Lowland in this case means habitat near a valley river.

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Willamette River are found just above the water’s temperatures, and increased background lighting edge, along the streambank, and further upslope in and wind velocities. The reduction in habitat the historic floodplain. There are approximately complexity and food availability has diminished 150 acres of riparian habitat in the vicinity of the some small-mammal, avian, and amphibian use, project. Within the project vicinity, riparian and has eliminated use for larger mammals (such habitats include the following: as elk, deer, and black bear). Generalist and edge-adapted wildlife would use these areas, such  Black cottonwood riparian forests and Pacific as the beaver. In addition, wildlife species and Columbia River willow wetland forests sensitive to human disturbances are absent from found in scattered patches along the river or uncommon in urban areas. No special-status bank and within the surrounding parks and species are dependent upon urban habitats found refuges in the project area.  Emergent and herbaceous vegetation patches Riparian Species along the river and in the surrounding parks and refuges The natural areas remaining along the river provide an important link between surrounding  Reed canarygrass (dominant by the existing upland forests and riparian habitats, and to other bridge) habitats located upstream and downstream along the river. Native aquatic mammals, including Upland Habitats beaver (Castor canadensis) and river otter (Lutra Upland habitat refers to habitat alongside the canadensis), have been observed within 2 miles of river above riparian habitat, except wetland the Sellwood Bridge. The City of Portland has habitat, which is addressed separately in indicated that amphibian surveys are currently Section 3.17. Within the project area, two upland underway at Powers Marine Park and Willamette habitats occur, Westside Lowland Conifer- Moorage Park that may show additional species in Hardwood Forest and Urban/Developed. the area.

Westside Lowland Conifer-Hardwood Several state or federally listed species have been Forest Habitats recorded in the area, including, bald eagle Westside Lowland Conifer-Hardwood Forests are (Halieetus leucocephalus) (state threatened) and found in the project vicinity. These forests are purple martin (Progne subis) (state critical, federal often associated with other habitat types, including species of concern). Westside Riparian habitats. This forest type is characterized by a mix of coniferous Douglas-fir Wildlife that Frequent the Project Area and western red cedar trees, with deciduous red A number of species that are protected under alder and big-leaf maple trees. The understory is the Migratory Bird Treaty Act might frequent the composed of mixed shrubs, primarily English ivy project area, including, but not limited to, osprey and hazel. There are approximately 200 acres in (Pandion haliaetus), green heron (Butorides the immediate area, and an additional virescens), Canada goose (Branta canadensis), approximately 700-acre forest just south and red-tailed hawk (Buteo jamaicensis), belted west of the 200 acres. kingfisher (Megaceryle alcyon), barn swallow Urban/Developed Habitats (Hirundo rustica), cliff swallow (Petrochelidon Urban/developed areas have reduced wildlife and pyrrhonota), Cooper’s hawk (Accipiter cooperii), and vegetation diversity because of the lack of violet-green swallows (Tachycineta thalassina). The vegetation structures and food sources, an habitats located within the surrounding natural- increased number of non-native species, elevated area parks support abundant wildlife, including

3-198 Sellwood Bridge Project F i n a l Environmental Impact Statement W i l d l i f e Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation raccoon, deer, opossum, river otter, beaver, and sightings of a roosting pair of American peregrine small rodents. falcons that may be nesting on the Sellwood Bridge, but use of the bridge for nesting has not Over 200 species of birds have been recorded been confirmed. within 2 miles of the project area, most within the parks fringing the river. In addition, several The northern red-legged frog (Rana aurora), a sensitive bird species have been observed federal species of concern and state vulnerable breeding within 2 miles of the project area— species, was found as recently as 1996 within American peregrine falcon (Falco peregrinus), bald 2 miles of the Sellwood Bridge. The red tree vole, eagle (Halieetus leucocephalus), and purple martin a federal species of concern, is present in Tryon (Progne subis). (Although no active breeding Creek State Park, which is about 2 miles distant colonies of purple martin exist in the project and connected by vegetated corridors to the area, two breeding pairs were observed in Willamette Moorage Park. No other special Willamette Park in 1998.) In fall 2008, the status wildlife species have been documented Audubon Society indicated that there were within 2 miles of the Sellwood Bridge in recent years. The Migratory Bird Treaty Act (MBTA) protects birds that are native to North No sensitive bat species have been documented America and that migrate between the using the Sellwood Bridge. Based on the current United States and other countries. The bridge design, it is unlikely that any bats use the most relevant section of the MBTA to this project is Section 703, which states: bridge as a day roost, although it is possible that bats occasionally rest or roost in the project "… [I]t shall be unlawful at any time, by any means or in any manner, to pursue, area. hunt, take, capture, kill, attempt to take, capture, or kill, possess, offer for 3.18.2 No Build Alternative sale, sell, offer to barter, barter, offer to purchase, purchase, deliver for Environmental shipment, ship, export, import, cause to Consequences be shipped, exported, or imported, Under the No Build Alternative, the existing deliver for transportation, transport or cause to be transported, carry or cause bridge and approach spans would require to be carried, or receive for shipment, maintenance activities. Deleterious materials transportation, carriage, or export, any from maintenance activities could enter the migratory bird, any part, nest, or egg of Willamette River, potentially impacting aquatic any such bird, or any product, whether resources. However, it is expected that best or not manufactured, which consists, or is composed in whole or part, of any management practices (BMPs) employed for such bird or any part, nest, or egg maintenance activities would protect wildlife thereof…" resources, unless the extent of the work was Migratory Bird Treaty Act Furthermore, the regulations that such that a Biological Assessment and implement the MBTA define the term consultation with the USFWS and the National “take” as: "to pursue, hunt, shoot, Marine Fisheries Service (NMFS) would require wound, kill, trap, capture, or collect, or attempt to pursue, hunt, shoot, wound, other conservation and mitigation measures. In kill, trap, capture, or collect." (50 CFR most cases, maintenance activities would not 10.12) cause additional adverse impacts to wildlife Measures that would be applied to resources. No additional adverse impacts are construction would include screening expected to occur to any wildlife resources the bridge prior to construction to under the No Build Alternative. prevent nesting, with subsequent disturbance of nesting birds.

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3.18.3 Build Alternatives Environmental Auditory and visual disturbances from construction-related activities would Consequences disperse wildlife from the area. Tolerance to disturbances varies among Impacts and Mitigation Common to species and times of the year. Many All Build Alternatives species are more sensitive to Although not necessarily impacting individuals of disturbances at the beginning of the a species, impacts to wildlife habitat ultimately nesting season, and would be more likely to abandon their nests and young than reduce the population of species that are they would later in the season. Species dependent upon the habitat. Between 10.0 and such as herons, raptors, and bats are 11.7 acres of wildlife habitat would be removed especially sensitive to noise and human permanently or disturbed significantly during proximity. Auditory and visual construction. This would constitute less than Wildlife Disturbances disturbances would temporarily disperse wildlife that reside in neighboring areas 0.2 percent of riparian habitat and 1 percent of during construction activities, but they Lowland Conifer-Hardwood Forest habitat within would likely return once construction the project vicinity. The balance would represent ended. Urban/Developed habitat, which is abundant. area. However, most of the wildlife occurring Each of the Build alternatives was designed to within the project area are common species that avoid impacts to wildlife habitat. However, all the are generously distributed. It is anticipated that Build alternatives would have permanent and the project would not affect any sensitive irreversible impacts to terrestrial and aquatic amphibian species. habitats. Potential impacts from any of the Build alternatives would primarily occur from two Only a very small amount of the disturbed area different means—short-term or temporary would be returned to habitat following effects from construction (auditory and visual construction. Because this habitat would be disturbances) and long-term and indirect effects immediately adjacent to a transportation facility, from operation. creation of high-quality habitat would not be possible. Habitat disturbances and alterations might potentially affect sensitive species in the project Wildlife connectivity would still exist north and south along the wooded corridor, and a The Bald Eagle Protection Act of 1940 low-volume road under the west-side interchange imposes criminal and civil penalties on would serve as wildlife access across OR 43. In anyone in the United States who, unless addition, culverts that convey Stephens Creek excepted, takes, possesses, sells, would be retained, providing access through this purchases, barters, offers to sell or purchase or barter, transports, exports corridor. or imports at any time or in any Species protected under the Migratory Bird manner a bald or golden eagle, alive or dead; or any part, nest or egg of these Treaty Act (see side box), as well as state and eagles; or violates any permit or federally listed sensitive species, occur within regulations issued under the Bald Eagle 2 miles of the Sellwood Bridge. Bald eagle,

Eagle Protection Act Protection Act. Cooper's hawk, red-tail hawk, and osprey could Because no adverse impacts to bald potentially be affected within the project area. Bald eagles would result from the project, However, no adverse impacts to these or other the project would be consistent with the Bald Eagle Protection Act. bird species are anticipated as a result of constructing this project.

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The Sellwood Bridge is over 1 mile from a bald  A reduction in shade from tree removal and eagle nest on Ross Island, and over 2 miles from a an increase in impervious surface area, such nest on Elk Rock Island. The closest known as roadway and paved paths nesting of peregrine falcons, on the Ross Island Bridge, is approximately 2.5 miles to the north of  A reduction of vegetative cover in wildlife the existing Sellwood Bridge. These nests are far corridors along the west hillside because enough away that noise impacts from foundation natural areas would be converted to drilling, bridge rehabilitation, and false-work transportation facilities would be at low levels that would not adversely  The potential to restore and improve riparian impact bald eagles or peregrines. It is likely bald habitat along the Willamette River by eagles and other birds would avoid flying over the removing non-native vegetation and planting Sellwood Bridge during construction, and native species as a result of mitigation peregrine falcons would avoid habitats near the measures undertaken in the immediate existing bridge during construction. project area or elsewhere

Direct Impacts. Impacts to wildlife and their  The potential to further enhance the habitat habitats would occur under all of the Build for wildlife by providing nest boxes or gourds alternatives. Disturbances to wildlife and their for purple martins habitats from construction and maintenance activities (including noise-related impacts) would Mitigation. Communities of native vegetation impact aquatic and terrestrial habitats, tree cover, would benefit from the mitigation and restoration and emergent vegetation. activities proposed under the Build alternatives. Invasive species, including Himalayan blackberry, Indirect Impacts. Overall, the Build alternatives reed canarygrass, and purple loosestrife, would would have positive and negative indirect impacts be removed with creation of the construction to vegetation and habitats. Potential indirect zone. Native species would be planted to help impacts to wildlife and their habitats from the restore riparian functions and improve the health proposed project might include the following: of the existing riparian habitats in construction-  A reduction in natural resources and reduced disturbed areas. use by wildlife as a result of increased human American peregrine falcons have been sighted in activity and access through the area the project area and may have nested on the  A decrease in foraging, refuge, and habitat Sellwood Bridge. Therefore, if the chosen bridge quality as a result of increased human activity design does not contain elements that could because of improved access to natural areas encourage nest building, the designers should consider incorporating a nest box into the bridge  A decrease in habitat diversity from the design. removal of native vegetation (such as black cottonwoods and willow thickets along the Avoidance and minimization measures would be river bank) and the spread of non-native incorporated into the project to eliminate effects plants (such as reed canarygrass, yellow iris to wildlife and their habitats. These measures [Iris pseudacorus], and purple loosestrife would address in-water work, erosion control, [Lythrum salicaria]) because of ground and containment of construction, handling of vegetation disturbances hazardous materials, and disturbance of upland, wetland, and riparian vegetation. For blasting activities, the blasts would be designed by a specialist; a pre-blast survey would be made

Sellwood Bridge Project F i na l Environmental Impact Statement 3-201 W i l d l i f e Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation before the blasts; and air blast, vibration, and Alternative B with no temporary detour bridge noise would be monitored during blasts. Typical would impact 9.5 acres (0.3 acre overhanging blasting practices would include: water and 9.2 acres terrestrial) of tree cover and 1.4 acres of other vegetation communities  Using smaller shots to reduce (rather than (0.6 acre herbaceous, 0.1 acre scrub-shrub, amplify) the impacts of the blasts 0.6 acre riparian, and 0.1 acre noxious weeds).

 Applying blasting mats to control fly rock and Under Alternative B, blasting activities along reduce noise impacts OR 43 would temporarily disturb wildlife.  Possibly adjusting the time of year to avoid Alternative C disturbing nesting birds Alternative C activities would result in potential BMPs would be employed to avoid and minimize impacts to the following wildlife habitats and construction effects. As part of the federal vegetation communities: 8.7 acres (0.1 acre Endangered Species Act (ESA) consultation, overhanging water and 8.6 acres terrestrial) of ODOT, ODFW, NMFS, and USFWS would tree cover and 1.3 acres of other vegetation negotiate more specific conservation measures communities (0.4 acre herbaceous, 0.1 acre for inclusion in final plans and specifications. scrub-shrub, 0.5 acre riparian, and 0.3 acre Appendix G, Summary of Mitigation and noxious weeds). Environmental Commitments, provides a list of Under Alternative C, blasting activities along proposed and committed avoidance, OR 43 would temporarily disturb wildlife. minimization, and conservation measures. Alternative D Alternative-specific Impacts and Alternative D would result in potential impacts to Mitigation the following wildlife habitats and vegetation Alternative A communities: 9.6 acres (0.3 acre overhanging Alternative A activities would result in potential water and 9.3 acres terrestrial) of tree cover and impacts to the following wildlife habitats: 1.6 acres of other vegetation communities 9.7 acres (0.1 acre overhanging water and (0.6 acre herbaceous, 0.2 acre scrub-shrub, 9.6 acres terrestrial) of tree cover and 1.5 acres 0.6 acre riparian, and 0.2 acre noxious weeds). of other vegetation communities (0.8 acre Under Alternative D, blasting activities along herbaceous, 0.1 acre scrub-shrub, 0.5 acre OR 43 would temporarily disturb wildlife. riparian, and 0.1 acre noxious weeds) within the right-of-way. Alternative E Alternative E would result in potential impacts to Under Alternative A, blasting activities along the following wildlife habitats and vegetation OR 43 would temporarily disturb wildlife. communities: 9.5 acres (0.1 acre overhanging Alternative B water and 9.4 acres terrestrial) of tree cover and Alternative B activities with a temporary detour 1.4 acres of other vegetation communities bridge would result in potential impacts to the (0.7 acre herbaceous, 0.1 acre scrub-shrub, following wildlife habitats and vegetation 0.5 acre riparian, and 0.1 acre noxious weeds). communities: 9.7 acres (0.3 acre overhanging Under Alternative E, blasting activities along water and 9.4 acres terrestrial) of tree cover and OR 43 would temporarily disturb wildlife. 1.5 acres of other vegetation communities (0.6 acre herbaceous, 0.1 acre scrub-shrub, 0.7 acre riparian, and 0.1 acre noxious weeds).

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Alternative D Refined beneath the Willamette Shoreline Trolley, the (Preferred Alternative) new multi-use trail, and the Willamette Alternative D Refined would result in potential Moorage Park and Macadam Bay Club impacts to the following wildlife habitats and driveway access) with a fish-and-wildlife- vegetation communities: 10.5 acres (0.2 acre friendly passage. Figure 3.9-2 shows the overhanging water and 10.3 acres terrestrial) of general location of this passage. tree cover and 1.2 acre of other vegetation communities (0.6 acre herbaceous, 0.2 acre  Within Willamette Moorage Park, construct scrub-shrub, 0.3 acre riparian, and 0.1 acre sloped, stepped, vegetated walls along a new noxious weeds). multi-use trail, where feasible, to minimize visual and aesthetic impacts to the park, and Under Alternative D Refined, blasting activities to provide for wildlife use and passage. along OR 43 would temporarily disturb wildlife.  Within Powers Marine Park, design and Mitigation. The project team worked with implement stream restoration along two Portland Parks & Recreation (PP&R) and the streams to provide an off-river habitat for Portland Bureau of Environmental Services to juvenile salmonids. Figure 3.9-2 shows the identify mitigation for natural resource impacts general location of this passage. within Powers Marine Park and Willamette Moorage Park. Multnomah County and the City 3.18.4 Summary of Alternatives by of Portland have agreed to: Differentiating Wildlife  Within Willamette Moorage Park, replace the Impact existing Stephens Creek culvert (which is

TABLE 3.18-1 Summary of Alternatives by Differentiating Wildlife Impact Disturbed Acres per Alternative Impact No Build A B B/TDB C D E D Refined Tree Cover 0 9.7 9.5 9.7 8.7 9.6 9.5 10.5 Other Vegetation 0 1.5 1.4 1.5 1.3 1.6 1.4 1.2 Total 0 11.2 10.9 11.2 10.0 11.2 10.9 11.7

B /TDB = Alternative B with temporary detour bridge

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3.19 Noise Noise Summary All existing, No Build Alternative, and Build Noise levels for the Build alternatives would alternative noise levels in this section are vary between 55 and 72 decibels (dBA), reported as equivalent sound level (Leq) in which would be a projected increase of up to 3 decibels above existing conditions (up to decibels on an A-weighted scale (dBA). See the 5 decibels with the temporary detour sidebars for descriptions of Leq and dBA. bridge). The Build alternatives would impact one business and between 16 and 20 3.19.1 Affected Environment residences. Oaks Pioneer Church with open Existing peak-hour traffic noise levels within the doors and windows would be impacted under all Build alternatives except Alternative B study area currently range from 57 to without the temporary detour bridge. No 71 decibels. (Table 3.19-1 provides a comparison mitigation was considered both reasonable of different sound levels.) The controlling in cost and feasible for noise impacts, but the criterion for noise is 65 decibels for residential final determination of reasonableness and feasibility would be made during final design and 70 decibels for commercial land uses. For of the project. Noise abatement measures more information, see the “Summary of would be implemented during construction. Regulatory Requirements” sidebar. hitting the surface of the bridge is a dominant There are several different ways to source of noise under the bridge. Other noise describe noise, depending on the sources include distant aircraft overflights and source of the noise, the receiver, and the reason for the noise measurement. boats traveling along the river. For traffic noise analyses, noise levels Currently, traffic across the Sellwood Bridge is are stated in terms of dBA (decibels on an “A-weighted” scale). The sound- restricted to vehicles weighing less than 10 tons. level in decibels is measured on a At the request of ODOT, vehicle traffic for sound-level meter using the A-weighted filter network. The Leq means the equivalent sound level. Weighted” Scale - A-weighted filter de-emphasizes the The equivalent sound level is the steady- very low and very high frequency state, A-weighted (dBA) sound level that components of the sound in a manner contains the same amount of acoustic similar to the frequency response of energy as the actual time-varying, the human ear and it correlates well A-weighted sound level over a specified with the human ear’s subjective period of time. If the time period is reactions to noise. All the sound levels 1 hour, the descriptor is the hourly in this section are A-weighted. A equivalent sound level, Leq(h), which is

Decibels on an “A 3-dBA change is considered to be a widely used by state highway agencies as just-perceivable difference in noise a descriptor of traffic noise, and is used in

levels. Leq this document. The Traffic Noise Model (TNM) developed by the Federal Highway Administration (FHWA) uses The predominant sources of noise in the area the Leq metric in determining potential include traffic on the Sellwood Bridge, OR 43, exceedances of the noise abatement SE Tacoma Street, and, to a lesser extent, I-5 criteria (NAC). The NAC are based upon (which is within 1 mile of the project site). Along noise levels associated with interference the east-side river path, traffic from OR 43 of speech communication and are a compromise between noise levels that sometimes sounds louder than the traffic from are desirable and those that are the Sellwood Bridge, even though the bridge is achievable. closer. In addition, the sound of vehicle tires

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TABLE 3.19-1 Comparative Sound Levels Sound Level (dBA) Transportation Sources Other Sources Description 130 Painfully loud 120 Jet takeoff (200 feet) 110 Car horn (3 feet) Maximum vocal effort 100 Shout (0.5 foot) 95 Very annoying

Jack hammer (50 feet) Loss of hearing with 90 Heavy truck (50 feet) Home shop tools (3 feet) prolonged exposure 85 Train on a structure (50 feet) Backhoe (50 feet) Bulldozer (50 feet) 80 City bus (50 feet) Annoying Vacuum cleaner (3 feet) Train (50 feet) 75 Blender (3 feet) City bus at stop (50 feet) Lawn mower (50 feet) 70 Freeway traffic (50 feet) Large office 65 Train in station (50 feet) Washing machine (3 feet) Intrusive 60 TV (10 feet) 55 Light traffic (50 feet) Talking (10 feet) 50 Light traffic (100 feet) Quiet 45 Refrigerator (3 feet) 40 Library 30 Soft whisper (15 feet) Very quiet dBA = decibels on an “A-weighted” scale; see sidebar existing conditions was modeled assuming a Bus traffic was assumed to travel on OR 43, uniform distribution of car, medium-truck, and SE Tacoma Street, and the Sellwood Bridge. heavy-truck traffic on all roadways modeled, including the Sellwood Bridge. The current 3.19.2 No Build Alternative 10-ton weight limitation over the bridge is a Environmental temporary solution not meant to solve the long- term problem. Including the weight restriction for Consequences modeled existing and No Build Alternative Under the No Build Alternative, noise levels conditions would create lower noise levels than would vary between 58 and 72 decibels, and would exist if no weight restriction were in place. would increase by up to 2 decibels above existing noise levels as a result of future increases in

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FHWA and ODOT requirements state that traffic noise impacts occur when predicted traffic noise levels approach or exceed the federal noise abatement criteria (NAC) or when a substantial increase above existing traffic noise levels occurs. The following items discuss these methods of identifying traffic noise impacts. • Approach or Exceed NAC. FHWA has established NAC that correspond to various types of activities. An impact occurs when the predicted traffic noise levels approach or exceed the applicable NAC. In Oregon, “approach” is defined as being within 2 decibels of the NAC. This means that, in Oregon, mitigation is considered when the impact is within 2 decibels of the FHWA NAC. The outside activity areas of residences, schools, parks, churches, and cemeteries (Activity Category B uses) are, therefore, impacted by traffic noise when the noise levels reach 65 decibels (NAC 67). If outside activity areas are not present, interior spaces of structures are impacted when traffic noise levels reach 50 decibels (NAC 52). Businesses are impacted by traffic noise if outside noise levels in the activity area of those businesses reach 70 decibels (NAC 72). • Substantial Noise Increase. The second method of determining whether a noise impact would occur is the substantial increase criterion. Under this criterion, a traffic noise impact occurs if the predicted traffic noise levels substantially exceed the existing noise levels. An increase of 10 decibels or more is considered a substantial increase. When noise levels approach by 2 decibels or exceed the NAC or when there is a substantial noise increase, noise abatement must be considered and analyzed. Noise barriers are the most commonly recommended mitigation measures. Summary of Regulatory Requirements ODOT has established that, for a noise barrier to be considered effective or “feasible,” it should reduce noise levels by at least 5 decibels. Typically, the noise reduction goals should be 7 to 8 decibels. For a noise barrier to be considered “reasonable” to construct, it typically must not cost more than $25,000 per benefited residence. A benefited residence is any affected or non-affected residence that gets a noise reduction of 5 decibels or more. traffic volumes. The 2-decibel increase predicted  First-row residences along SE Tacoma Street for the No Build Alternative would not be between SE 6th Avenue and SE 7th Avenue perceived by most individuals and is not (16 residences). considered a substantial increase.  Oaks Pioneer Church with open doors and The places that would be impacted (those that windows. (The NAC is 52 decibels, and the approach within 2 decibels or exceed the Oregon criterion is 50 decibels. The noise applicable noise abatement criteria [NAC]) level for the existing condition is 49 decibels, include: and would be 50 decibels for the No Build Alternative in 2035.)  Two residences at Grand Place: second- and third-story balconies facing SE Tacoma Street.  The restaurant at the corner of SE 7th Avenue and SE Tacoma Street, which has  Two residences at Sellwood Harbor outdoor seating facing SE Tacoma Street Condominiums: the upper-story closest to the south side of the bridge. These locations are illustrated on Figure 3.19-1.

 Four residences at River Park Condominiums 3.19.3 Build Alternatives with the upper-story balconies facing the north side of the bridge. Environmental Consequences In this section, a noise impact is defined as approaching or exceeding the applicable NAC.

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Impacts and Mitigation Common to Construction would cause noise levels that would All Build Alternatives exceed the current levels. Construction noise Direct Impacts. The following places would be impacts would occur throughout the project construction period. Noise impacts would range impacted under the Build alternatives: from low (such as noise from trucks, cranes, and  Sixteen first-row residences along SE Tacoma other construction vehicles) to high (such as Street between SE 6th Avenue and vibratory compaction equipment during bridge SE 7th Avenue would experience an increase construction). Drilled shafts and other unusually in noise levels. loud activities would be limited to daytime hours. Night work would require acquisition of the  The restaurant at the corner of SE 7th appropriate noise permits from the City of Avenue and SE Tacoma Street (which has Portland. outdoor seating that faces SE Tacoma Street) would experience an increase in noise levels. Indirect Impacts. No identified indirect noise impacts would be associated with the Build The distance to the 65-decibel contour (the alternatives. Oregon noise impact level for residential land uses) would occur for receivers within a 10-foot Mitigation. Noise-abatement measures are vertical difference from the roadway out to considered when the specific performance approximately 70 feet along SE Tacoma Street. criteria for the measure can be met. The measure must be able to reduce the noise level by

FIGURE 3.19-1 2035 Noise Levels for the No Build Alternative and the Build Alternatives

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5 decibels, and cost no more than $25,000 per 900 meters of any occupied dwelling by benefited residence. Noise-abatement measures strategic placement of material stockpiles were considered for the potential impacts between the operation and the affected associated with the Build alternatives, including dwelling or by other means approved by the noise walls. Only one property, a commercial Multnomah County Managing Construction property, could be effectively mitigated. An Engineer. 8-foot noise barrier placed in the right-of-way To mitigate possible noise impacts to River View between property boundaries and sidewalks Cemetery during construction, Multnomah south of SE Tacoma Street at 8105 SE 7th County would notify the Cemetery Association Avenue would provide sufficient noise reduction two days before construction activities with high- for outdoor seating at the restaurant for all Build level noise generation. The Cemetery Association alternatives. However, because this location is a could then direct that the contractor cease using commercial property, the final determination of high-level noise-generating equipment adjacent to reasonableness and feasibility would be made the cemetery during burial services in the during final design of the project. No noise cemetery. The equipment could be shut down for measures that were both reasonable in cost and 2 to 3 hours. feasible were possible for receivers that, by 2035, the Build alternatives would impact. Should a specific noise-impact complaint occur during the construction of the project, one or Noise mitigation would be required during more of the following noise mitigation measures construction. Potential construction would be required: noise-abatement measures include:  Locate stationary construction equipment as  Not performing construction within far from nearby noise-sensitive properties as 300 meters of an occupied dwelling unit on possible Sundays, legal holidays, and between the hours of 10:00 p.m. and 6:00 a.m. on other  Shut off idling equipment days without approval.  Reschedule construction operations to avoid  Having sound-control devices no less periods of noise annoyance identified in the effective than those provided on the original complaint equipment on all equipment used. Not allowing equipment with unmuffled exhaust.  Notify nearby residences whenever extremely noisy work will be occurring  Having all equipment comply with pertinent equipment noise standards of the  Install temporary or portable acoustic U.S. Environmental Protection Agency (EPA). barriers around stationary construction noise sources  Not performing pile-driving or blasting operations within 900 meters of an occupied  Operate electric-powered equipment using dwelling unit on Sundays, legal holidays, and line voltage power between the hours of 8:00 p.m. and 8:00 a.m. Construction activities would be conducted in a on other days unless the Multnomah County manner that complied with all applicable local Managing Construction Engineer has granted noise ordinances, including Title 18, the City of approval for such operations. Portland’s Noise Control code (Section  Mitigating the noise from rock-crushing or 18.10.060), unless a variance was granted. screening operations performed within

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A final decision on installation of any mitigation Alternative B or potential noise abatement measures would be Noise levels would vary between 56 and made upon completion of the project design and 72 decibels, which is a projected increase of up to the public involvement process. All noise 1 decibel above existing conditions. Noise levels mitigation measures will be disclosed in the for Alternative B would increase up to 1 decibel Record of Decision. above the No Build Alternative. Most noise levels projected under the No Build Alternative would Alternative-specific Impacts and decrease under Alternative B. Mitigation In addition to the locations impacted under all Alternative A Build alternatives, the following locations would Noise levels would vary between 56 and 72 decibels, which is a projected increase of up to also be impacted: 1 decibel above existing conditions. Noise levels  Two residences at Grand Place with second- for Alternative A would be less than or equal to and third-story balconies facing SE Tacoma the noise levels for the No Build Alternative. Street. Most noise levels projected under the No Build Alternative would decrease under Alternative A.  Two residences at Sellwood Harbor Condominiums on the upper story closest to In addition to the places impacted under all Build the south side of the bridge. alternatives, the following locations would also be impacted: The locations with noise impacts are shown on Figure 3.19-1.  Two residences at Grand Place with second- and third-story balconies facing SE Tacoma No mitigation is considered both reasonable in Street. cost and feasible for these impacts.

 Oaks Pioneer Church with open doors and Temporary Detour Bridge Option windows. (Under Alternative A, the noise Noise levels with the Alternative B temporary level would be 50 decibels in 2035, which detour bridge option would vary between 55 and would meet the Oregon abatement criterion 72 decibels, which is a projected increase of up to of 50 decibels [52-decibel NAC].) Alternative 5 decibels above existing conditions. Noise levels A, unlike Alternative B, would have a would be up to 4 decibels above those for the narrower bridge deck without sidewalks on No Build Alternative. The close proximity of the the bridge to act as a barrier and shield noise. detour bridge to the Oaks Pioneer Church would Therefore, the noise level in the church cause noise levels to increase up to 5 decibels (to would be 1 decibel higher under 64 decibels at exterior locations), which would Alternative A than under Alternative B. still be below the abatement criteria. Interior Although 1 decibel is not a perceivable noise levels would increase to 54 decibels, which increase in noise, it is high enough (50 would be 4 decibels above the Oregon abatement decibels) to be considered an impact because criterion of 50 decibels (2 above the 52-decibel interior spaces of structures are impacted NAC). For Alternative B with the temporary when traffic noise levels reach 50 decibels. detour bridge, a 10- to 12-foot barrier could sufficiently reduce noise levels inside the Oaks The locations with noise impacts are shown on Pioneer Church. The final determination of Figure 3.19-1. reasonableness and feasibility for the detour bridge mitigation would be made during final No mitigation is considered both reasonable in design of the project. cost and feasible for these impacts.

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The locations with noise impacts are shown on level would be 50 decibels in 2035, which Figure 3.19-1. would meet the Oregon abatement criterion of 50 decibels [52-decibel NAC].) Alternative C Noise levels would vary between 58 and The locations with noise impacts are shown on 72 decibels, which is a projected increase of up to Figure 3.19-1. 1 decibel above existing conditions. Noise levels No mitigation is considered both reasonable in for Alternative C would be less than or equal to cost and feasible for these impacts. the noise levels for the No Build Alternative.

In addition to the locations impacted under all Alternative E Noise levels would vary between 55 and Build alternatives, the following locations would 72 decibels, which is a projected increase of up to also be impacted: 2 decibels above existing conditions. Noise levels  Two residences at Grand Place with second- for Alternative E would increase up to 1 decibel and third-story balconies facing SE Tacoma above the No Build Alternative. Most noise levels Street. projected under the No Build Alternative would decrease under Alternative E, except for the  Oaks Pioneer Church with open doors and north end of Sellwood Riverfront Park, the Oaks windows. (Under Alternative C, the noise Pioneer Church, and 608 SE Tacoma Street. (The level would be 50 decibels in 2035, which existing noise level is 49 decibels. Under would meet the Oregon abatement criterion Alternative E, the noise level would be of 50 decibels [52-decibel NAC].) 51 decibels in 2035, which would exceed the The locations with noise impacts are shown on Oregon abatement criterion of 50 decibels by Figure 3.19-1. 1 decibel [52-decibel NAC].)

No mitigation is considered both reasonable in In addition to the locations impacted to levels cost and feasible for these impacts. above the Oregon abatement criteria under all Build alternatives, Oaks Pioneer Church with Alternative D open doors and windows would also be impacted Noise levels would vary between 56 and because of the greater proximity of the bridge to 72 decibels, which is a projected increase of up to the church. However, the overall exterior noise 3 decibels above existing conditions. Noise levels level would still be lower than the Oregon for Alternative D would be up to 2 decibels criterion of 65 decibels (67-decibel NAC). above the noise levels for the No Build Alternative. Most noise levels projected under The locations with noise impacts are shown on the No Build Alternative would decrease under Figure 3.19-1. Alternative D. The mitigation normally considered for interior In addition to the locations impacted under all impacts is installation of double-paned windows Build alternatives, the following locations would and air conditioning. In the case of the church, also be impacted: the interior is not impacted when the existing windows are closed (noise levels for Build  Two residences at Grand Place with second- alternatives range from 34 to 39 decibels), and and third-story balconies facing SE Tacoma the church already has air conditioning. The Street. operation of the church for weddings and other group functions requires that the doors  Oaks Pioneer Church with open doors and frequently be open, and the windows are often windows. (Under Alternative D, the noise

3-210 Sellwood Bridge Project F i n a l Environmental Impact Statement No i s e Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation open as well. Under these circumstances, no  Two residences at Grand Place with second- mitigation is considered both reasonable in cost and third-story balconies facing SE Tacoma and feasible for noise level increases. Street.

Alternative D Refined  Oaks Pioneer Church with open doors and (Preferred Alternative) windows. (Under Alternative D Refined, the Noise levels would vary between 56 and noise level would be 50 decibels in 2035, 72 decibels, which is a projected increase of up to which would meet the Oregon abatement 3 decibels above existing conditions. Noise levels criterion of 50 decibels [52-decibel NAC].) for Alternative D Refined would be up to 2 decibels above the noise levels for the No Build The locations with noise impacts are shown on Alternative. Most noise levels projected under Figure 3.19-1. the No Build Alternative would decrease under No mitigation is considered both reasonable in Alternative D Refined. cost and feasible for these impacts. In addition to the locations impacted under all Build alternatives, the following locations would 3.19.4 Summary of Alternatives by also be impacted: Differentiating Traffic Noise Impact

TABLE 3.19-2 Summary of Alternatives by Differentiating Traffic Noise Impact Impact No Build A B B/TDB C D E D Refined 2035 Noise Level 58–72 56–72 56–72 55–72 58–72 56–72 55–72 56–72 (decibels) Noise Difference from Existing +2 +1 +1 +5 +1 +3 +2 +3 Conditions (decibels) Residences 24 18 20 16 18 18 16 18 Interior Churcha 1 1 0 1 1 1 1 1 Businesses 1 1 1 1 1 1 1 1 Total 26 20 21 18 20 20 18 20 a The interior noise levels at Oaks Pioneer Church with open doors and windows B/TDB = Alternative B with temporary detour bridge

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3.20 Energy Energy Summary The amount of energy consumed during This energy analysis followed an ODOT-required construction would vary as much as methodology for energy analysis, which is based 40 percent among the Build alternatives. on the energy consumed during construction and However, all Build alternatives would use the operation in the study area. Therefore, this same amount of energy during operation section does not cover energy consumed outside because traffic volumes would be the same among all the Build alternatives. the study area, sustainability, or the emission of greenhouse gases. (Although greenhouse gases do not yet have agreed-upon standards and methods project. A British thermal unit (Btu) was used as for analysis related to transportation projects, the measure of energy in the analysis. they are discussed in Section 3.21.2.) 3.20.2 No Build Alternative Construction costs referenced in this section, Environmental which were used for the ODOT-required Consequences methodology for energy analysis, do not include the costs for design, construction engineering, or As described in Chapter 2, the No Build right-of-way. Therefore, they are not the full Alternative would extend the life of the existing costs for each alternative. (The full costs are bridge to year 2035 and would cost documented in Chapter 2.) approximately $41 million for maintenance activities. The energy consumed for maintenance 3.20.1 Affected Environment activities would be approximately 182,000 million Btu for the 12-month maintenance activity The study area for energy resources is the same period, or 1.6 million gallons of gasoline. Total as the study area for transportation, which is annual operational energy consumed by vehicles illustrated on Figure 3.1-1 in Section 3.1, is estimated at 1,666 million Btu per year, or Transportation. equivalent to approximately 14,677 gallons of fuel The annual energy consumed during operation consumed annually. was calculated by estimating the annual average daily traffic, vehicle classification (autos and 3.20.3 Build Alternatives trucks), distance traveled, average speed, and fuel Environmental consumption rates in the study area. The energy Consequences effects for the Build alternatives during construction were estimated by applying a bridge Impacts and Mitigation Common to construction energy consumption factor All Build Alternatives developed by the California Department of Direct Impacts. The estimated annual vehicle Transportation to the alternative-specific energy consumption for the Build alternatives construction cost. This estimation method was during operation is 2,177 million Btu, or employed because the amount of energy used equivalent to approximately 18,029 gallons of during the construction of a project is generally gasoline consumed annually. This annual amount proportional to the construction cost of the of energy consumed by vehicles under the Build alternatives would be 22.8 percent more than the A Btu, short for British thermal unit, is energy consumed under the No Build Alternative. a basic measure of thermal (heat) Unit Trucks and buses would be permitted under the energy. One Btu is the amount of Build alternatives because the existing weight energy needed to heat one pound of British water one degree Fahrenheit, at a restriction on the bridge would be removed.

Thermal constant pressure of one atmosphere.

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Because trucks tend to consume more energy Alternative-specific Impacts than autos, an increase in the percentage of As stated previously, the operational energy trucks would increase the total energy consumed consumption would be the same for all the by vehicles within the study area. However, this proposed Build alternatives (2,177 million Btu). increase in truck traffic across the bridge would Table 3.20-1 provides a summary of energy not create a net increase in energy expended, as consumed (in million Btu) during construction for truck traffic would be diverted from other bridge each alternative and Build alternative option (if crossings. applicable). This table also provides the energy Indirect Impacts. No significant indirect energy consumed as the equivalent gallons of gasoline impacts are expected to result from construction consumed. or operation of any of the Build alternatives. 3.20.4 Summary of Alternatives by Mitigation. Construction and operating Differentiating Energy activities should attempt to minimize roadway congestion and should adhere to practices that Impact encourage efficient energy use, such as limiting idling equipment, locating construction staging areas near work sites, and encouraging carpooling.

TABLE 3.20-1 Summary of Alternatives by Differentiating Energy Impact Construction Operation Annual Construction (million Btu) (million Btu) Materials Cost (Equivalent million (Equivalent gallons of Alternative Option (millions)a gallons of gasoline) gasoline) $41 182,000 1,666 No Build (1.6) (14,677) Stress-ribbon $184 817,000 2,177 Pedestrian/Bike Bridge (7.2) (18,029) A Cable-stayed $188 834,800 2,177 Pedestrian/Bike Bridge (7.4) (18,029) Rehabilitated Bridge Only $182 808,100 2,177 (7.1) (18,029) B Rehabilitated Bridge with $200 888,000 2,177 Temporary Detour Bridge (7.8) (18,029) Through-arch Bridge $155 688,200 2,177 C (6.1) (18,029) Deck-arch Bridge $171 759,300 2,177 (6.7) (18,029) D Delta-frame Bridge $159 706,000 2,177 (6.2) (18,029) Box-girder Bridge $143 634,900 2,177 (5.6) (18,029) E Through-arch Bridge $192 852,500 2,177 (6.5) (18,029) Deck-arch Bridge $161 714,800 2,177 (6.3) (18,029) D Refined Delta-frame Bridge $156 692,600 2,177 (6.1) (18,029) a Construction materials cost is in 2012 dollars. These costs are construction costs only, and not the total cost for each alternative. The total cost for each alternative is documented in Chapter 2.

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Air Quality Summary 3.21 Air Quality Emissions from the No Build Alternative 3.21.1 Affected Environment would be the same as those from the Build alternatives and would meet federal and The U.S. Environmental Protection Agency (EPA) state air quality standards. Mitigation has established National Ambient Air Quality measures consistent with construction best Standards (NAAQS) for the following air management practices are recommended pollutants: ozone, carbon monoxide, nitrogen for construction of the Build alternatives. dioxide, sulfur dioxide, particulate matter less than 10 micrometers in aerodynamic diameter commonly referred to as “criteria pollutants.” (PM10), particulate matter less than Mobile Source Air Toxics (MSATs) are a subset 2.5 micrometers in aerodynamic diameter (PM2.5), of the 188 air toxics defined by the federal Clean and lead (Table 3.21-1). These pollutants are Air Act, but unlike the criteria pollutants, do not

TABLE 3.21-1 National Ambient Air Quality Standards (NAAQS) National Standardsa

Oregon Pollutant Averaging Time Standards Primaryb Secondaryc Ozone 8-Hour 0.08 ppm 0.08 ppm

Carbon Monoxide 8-Hour 9.0 ppm 9.0 ppm -- 1-Hour 35 ppm 35 ppm -- Nitrogen Dioxide Annual Arithmetic Mean 0.053 ppm 0.053 ppm 0.053 ppm Sulfur Dioxide Annual Arithmetic Mean 0.02 ppm 0.03 ppm -- 24-Hour 0.10 ppm 0.14 ppm -- 3-Hour 0.050 ppm -- 0.5 ppm

d d d PM10 Annual Arithmetic Mean Revoked Revoked Revoked 24-Hour 150 µg/m3 150 µg/m3 150 µg/m3

3 3 3 PM2.5 Annual Arithmetic Mean 12 µg/m 15 µg/m 15 µg/m 24-Hour -- 65 µg/m3 65 µg/m3 Lead Calendar Quarter 1.5 µg/m3 1.5 µg/m3 1.5 µg/m3 a National standards, other than ozone, particulate matter, and those based on annual averages or annual arithmetic means, are not to be exceeded more than once a year. The ozone standard is attained when the fourth highest 8-hour concentration in a year, averaged over 3 years, is equal to or less than the standard.

For PM10, the 24-hour standard is attained when the expected number of days per calendar year with a 3 24-hour average concentration above 150 µg/m is equal to or less than one. For PM2.5, the 24-hour standard is attained when 98 percent of the daily concentrations, averaged over 3 years, are equal to or less than the standard. b National Primary Standards: The levels of air quality necessary, with an adequate margin of safety, to protect the public health. c National Secondary Standards: The levels of air quality necessary to protect the public welfare from any known or anticipated adverse effects of a pollutant. d As a result of lack of evidence linking health problems to long-term exposure to coarse particulate pollution,

the EPA revoked the annual PM10 standard in 2006, effective December 17, 2006. µg/m3 = micrograms per cubic meter ppm = parts per million (by volume) Source: 2006 Oregon Air Quality Data Summaries (DEQ, 2007).

3-214 Sellwood Bridge Project F i n a l Environmental Impact Statement Ai r Q ua l i t y Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation have regulatory standards. The MSATs are are more stringent than the NAAQS. compounds emitted from highway vehicles and Transportation agencies, including ODOT and non-road equipment. The EPA, which is the lead the Federal Highway Administration (FHWA), are federal agency for administering the Clean Air responsible for showing that transportation Act, has certain responsibilities regarding the projects meet the requirements of these plans. health effects of MSATs. FHWA requires MSAT analyses for a project with low potential for toxic emissions. The reduction in emissions from transportation sources has been predicted since emissions The Clean Air Act of 1970 was enacted controls were placed on automobiles in the to protect and enhance air quality and to 1970s. Concentrations of transportation-related assist state and local governments with emissions in urban areas, such as ozone and air pollution prevention programs. carbon monoxide, have declined over time, even Under the Clean Air Amendments of as the number of automobiles and small trucks 1990, the federal government cannot fund, authorize, or approve federal has increased significantly, along with the number actions to support programs or projects of miles traveled. Together with the Clean Air Act that are not first found to conform to implementation of other regulatory programs, Clean Air Act requirements. both air toxic emissions and criteria pollutant emissions will be reduced over time. In the state of Oregon, transportation projects located in attainment-maintenance areas are National Ambient Air Quality subject to the conformity requirements imposed Standards (NAAQS) Air Pollutants by the federal Clean Air Act and Oregon’s (“Criteria Pollutants”) transportation conformity rules. The Clean Air Carbon Monoxide (CO) Act requires that transportation projects located

Nitrogen Dioxide (NO2) in attainment-maintenance areas conform to the

Air Pollutants Particulate Matter (PM10 and PM2.5) SIP. Conformity to a SIP means that transportation activities would not produce new Ozone (O3) air quality violations, worsen existing violations, Sulfur Dioxide (SO2) or delay timely attainment of the NAAQS. (“Criteria Pollutants”) NAAQS Lead (Pb) These rules stipulate the following requirements: State and local regulatory agencies, including the  Inclusion of the project in the conforming Oregon Department of Environmental Quality Regional Transportation Plan and (DEQ), are responsible for developing plans to Transportation Improvement Program bring nonattainment areas into compliance with the NAAQS so that they attain the status of  A determination whether the project would attainment-maintenance areas. A “non-attainment produce any new violations of the NAAQS area” is a geographic area in which the level of a or worsen any existing violation criteria air pollutant is higher than the level allowed by the federal standards. Each state  A determination whether or not the project maintains a State Implementation Plan (SIP) for would delay implementation of transportation achieving compliance with the NAAQS. The State control measures (TCMs) of Oregon’s SIP, the State of Oregon Clean Air Act Conformity Determination Implementation Plan, established ambient air quality standards that matched the NAAQS with This project is subject to the project-level conformity requirements for carbon monoxide, the exception of sulfur dioxide and PM2.5, which as specified under federal regulation (40 Code of

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Federal Regulations [CFR] Parts 51 and 93) and Transportation Conformity requirements, state rule (Oregon Administrative Rules [OAR] 40 CFR 93 Subpart A and OAR 340-252. 340 Division 252). The project is included in the The air toxics assessment was based on guidance conforming Regional Transportation Plan (RTP specific to a project with low potential MSAT 2035) and Transportation Improvement Program effect, as described in FHWA guidance for (TIP 2008-2011). The general scope of work of conducting air toxic analysis (2006). The air the Build alternatives is the same as the toxics criteria are selected based on the average conforming RTP and TIP. Air quality impacts are annual daily traffic (AADT) for the project area. assessed in the analyses presented in this section. The project AADT is approximately 42,454 The project would not produce any new vehicles. This is less than the FHWA criteria of violations of the NAAQS or worsen any existing 140,000 to 150,000 AADT, below which a low violations. The project would not delay potential for air toxics impacts is anticipated. implementation of TCMs. Therefore, the project has been determined to be in conformance with 3.21.2 No Build Alternative and federal and state conformity requirements for carbon monoxide. Build Alternatives Environmental Local Context Consequences Portland is located at the northern end of the Willamette Valley, which makes it prone to Impacts and Mitigation Common to periods of poor air dispersion due to the All Alternatives predominance of storms in late fall and winter Direct Impacts. Air emissions from mobile and high temperatures and light winds during the sources would decline over the life of the summer and early fall. High concentrations of project, regardless of the alternative chosen (the carbon monoxide and particulate matter from No Build Alternative or any of the Build automobile and home heating emissions can alternatives) because of new technology and result during these periods of poor air dispersion phasing out of older, more polluting vehicles. and stagnant air. The emissions analysis was conducted for existing In the early 1990s, the EPA designated the year, 2013, and 2035 conditions. The Portland area as a nonattainment area for carbon concentrations were modeled based on the traffic monoxide and ozone. On September 2, 1997, the analysis to determine what changes would occur EPA approved a redesignation of the Portland and the impacts on carbon monoxide emissions. area to a maintenance area for carbon monoxide Results of the hot-spot analysis show that and in attainment, subject to a 10-year concentrations would be below the carbon maintenance plan. In 2007, the standards for monoxide standard in 2013 and 2035. The federal ozone were changed from a 1-hour maintenance and Oregon standards are 35 parts per million standard to an average 8-hour standard, and the (ppm) for the 1-hour carbon monoxide standard EPA formally designated the Portland/Vancouver and 9 ppm for the 8-hour carbon monoxide area as in attainment of the 8-hour ozone standard. For all alternatives, predicted 1-hour standard. (Table 3.21-1 provides ambient air and 8-hour carbon monoxide concentrations quality standards.) would be equal to or less than 4.9 and 3.9 ppm, respectively, in 2035. Therefore, the project Federally funded transportation projects within a would not cause any new violations of the maintenance area must include a carbon NAAQS. monoxide “hot-spot analysis” as defined by the

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Table 3.21-2 shows the calculated 8-hour carbon cause region-wide MSAT levels to be significantly monoxide concentrations in ppm at the OR 43 at lower than they are today. SW Taylors Ferry Road intersection. This is the Indirect Impacts. The No Build Alternative and poorest performing intersection in the study area the Build alternatives would cause no indirect or in terms of congestion and capacity. This secondary air quality impacts during construction. intersection also has the highest traffic volumes in There are no indirect effects identified for air the study area. For these reasons, it was analyzed quality resources in the study area. for carbon monoxide concentration. Mitigation. There would be no recommended TABLE 3.21-2 mitigation for operation of the project. The Maximum Carbon Monoxide Concentrations following mitigation measures, which are (in ppm) at the SW Taylors Ferry Road/OR 43 consistent with construction best management Intersection practices, are suggested for construction of the Calculated alternatives: Scenario 8-hour (ppm) National and Oregon Standards 9.0  Use, where possible, water or other suitable materials to control dust. 2013 (All Alternatives) 3.7  Apply asphalt, oil, water, or other suitable 2035 (All Alternatives) 3.9 materials on unpaved roads, material ppm = parts per million stockpiles, and other surfaces that can create airborne dust.

Carbon monoxide emissions at this intersection  Completely enclose material stockpiles. from the No Build Alternative would be the same Stockpiles can be partially enclosed where as carbon monoxide emissions from the Build the application of oil, water, or chemicals is alternatives because traffic volumes and not sufficient to prevent particulate matter intersection conditions (such as lane from becoming airborne. configurations and signal timing) would be similar for each alternative. As illustrated, carbon  Use wind fencing to reduce soil disturbances. monoxide concentrations would be less than the  Locate construction equipment and the truck national and Oregon standards for carbon staging area away from sensitive receptors as monoxide (43 percent of the standards in 2035). practical and in consideration of potential The localized level of MSAT emissions under the effects on other resources. Build alternatives could be higher relative to the  Schedule work tasks to minimize disruption No Build Alternative because, in some places, the of the existing vehicle traffic on streets. road would be realigned closer to receptors. However, this could be offset due to increases in  Cover, at all times when in motion, open- vehicle speeds and reductions in congestion bodied trucks that are transporting materials (which are both associated with lower MSAT likely to become airborne. emissions). In addition, MSATs would be lower in other locations because traffic would shift away  When possible, restrict road or land closures from those locations. However, on a regional to non-peak traffic periods to reduce the basis, the EPA’s vehicle and fuel regulations, effect construction delays might have on coupled with fleet turnover, will cause substantial traffic flow and resultant emissions. reductions over time that, in almost all cases, will

Sellwood Bridge Project F i na l Environmental Impact Statement 3-217 Ai r Q ua l i t y Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

 Promptly remove from paved streets any However, it is likely that those vehicles would earth or other material that might become also produce such gases at a different location if airborne. this project were not built. Therefore, the construction vehicles would likely emit Multnomah County would look for opportunities greenhouse gases regardless of this project. to employ other environmentally friendly techniques to control emissions from vehicles The materials used to construct the project and machines used in construction. Such practices would be greenhouse-gas contributors specific to might include, but would not be limited to, the this project. The manufacturing processes of two use of: primary materials used in bridge construction— cement and steel—produce significant carbon  Low-sulfur diesel fuel on all diesel equipment dioxide, as well as other gases. Although  Construction equipment with new-generation technologies are emerging for both of these diesel engines, when available, or equipment processes that would reduce carbon dioxide with tailpipe diesel-particulate removal, when production, the availability of such products at available the time of construction of the proposed bridge and their comparative costs are not known at  Environmentally friendly lubricants, solvents, this time. Because the No Build Alternative and chemicals, to the greatest extent would require much less material, it would practicable contribute the least to construction-generated greenhouse gases. Multnomah County would require contractors to comply with Section 290 of Oregon Standard At least two bridge designs are still under Specifications for Construction (ODOT, 2008), consideration. However, they have not been which has requirements for environmental developed sufficiently to determine the protection, including air-pollution-control differences between them as they relate to measures. These control measures, which are greenhouse-gas production. It is not expected designed to minimize vehicle track-out and that aspects of the bridge design selected would fugitive dust, would be documented in the differ to the extent that this would be considered pollution control plan that the contractor would a determining factor among them. be required to submit prior to the pre- construction conference. Greenhouse Gases Emitted during Operation. Greenhouse gases emitted by surface vehicles in Greenhouse Gases. The analyst did not model regional planning are generally evaluated in terms greenhouse gases for this Final Environmental of vehicle miles traveled (VMT). For the Sellwood Impact Statement (FEIS) because, at this time, no Bridge project, all alternatives, including the No reliable data, adopted criteria, or accepted Build Alternative, would generate the same approaches and models exist for predicting amount of traffic. However, the No Build greenhouse gas emissions for transportation Alternative and the Build alternatives would have projects. However, some aspects of the project a different mix of vehicles. The No Build can be evaluated through deductive analysis Alternative would not allow truck traffic and rather than modeling. transit vehicles, but all Build alternatives would allow truck traffic, reinstate transit service, and Greenhouse Gases Emitted during be designed to accommodate a future streetcar Construction. Construction-related activities line on the bridge. This would create a difference would also be a source of greenhouse gases. between the No Build Alternative and the Build Construction vehicles would produce greenhouse alternatives regarding VMT. With all Build gases during the project construction period.

3-218 Sellwood Bridge Project F i n a l Environmental Impact Statement Ai r Q ua l i t y Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation alternatives, some trips are expected to change pedestrian travel, reinstate transit service across to transit and some truck traffic is expected, the bridge, accommodate a future streetcar line primarily local truck traffic, from trucks that are on the bridge, and provide connections between currently prohibited because of a weight these modes. All the Build alternatives would limitation on the bridge. Initially, then, the Build create this opportunity equally, therefore offering alternatives would be expected to perform equal opportunities for reducing greenhouse gas identically, and could potentially slightly decrease emissions. However, reducing these emissions VMT compared to the No Build Alternative. would require significant efforts and the development of projects outside the scope of this Regional growth in population will increase traffic project. and congestion in the Sellwood Bridge corridor, therefore increasing the emission of greenhouse The No Build Alternative would offer little gases. By 2035, a 33 percent increase in travel toward reducing greenhouse gas emissions demand is expected in the corridor for both the because it would not maintain an efficient No Build Alternative and the Build alternatives. connection across the river for auto traffic, There would be small operating performance reinstate transit across the bridge, construct differences within the limits of the project termini improved bicyclist and pedestrian facilities, or among the Build alternatives. For example, the accommodate a future streetcar line. west-side interchange associated with Increasing the mileage per gallon of fuel and changing Alternative C would operate in a free-flow the vehicle fuel type. A long-term national strategy condition, saving some travel time within the to reduce greenhouse gases is for vehicles to use limits of the project. However, this advantage less energy per mile and use energy from sources would be lost as traffic moved beyond the project that produce either no or less greenhouse gas area. It is believed that the free-flow condition emissions. Implementation of this strategy would would lead to no real reduction in greenhouse reduce greenhouse gases for all Build alternatives gas emissions among the Build alternatives. If no and the No Build Alternative. Those Build other aspects of travel patterns could be altered, alternatives that would provide for the all the alternatives would increase greenhouse gas reinstatement of public transit and emissions. accommodation of a future streetcar line would Strategies to decrease greenhouse gases resulting not guarantee a reduction of greenhouse gas from transportation would include the following: emissions. Even if these modes of travel used electricity, to determine the effect on greenhouse  Changing modes of travel to those that gases, the generation source of the electricity would be more efficient per person trip (such must be evaluated for carbon production. as transit), use cleaner sources of energy (for Greenhouse gases have the same effect on example, electric and natural gas), and climate change regardless of where they are accommodate human-powered means (for produced. Currently, electricity used in Oregon example, walking and bicycling) is generated from the following fuel sources:

 Changing trip patterns, so that shorter and  43 percent from hydropower fewer trips were required  38 percent from burning coal  Increasing the mileage per gallon of fuel  14 percent from natural gas  3 percent from nuclear  Changing the vehicle fuel type  2 percent from wind, solar, and other Changing modes of travel and trip patterns. The sources (Oregon Department of Energy, Build alternatives would increase bicyclist and 2007; Pheil, 2009)

Sellwood Bridge Project F i na l Environmental Impact Statement 3-219 Ai r Q ua l i t y Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

Therefore, the majority of Oregon’s electricity is for reducing greenhouse gases, other than what still generated from carbon-based fuels (coal and would occur as energy sources for cars change natural gas). It is expected that electric utility over time. companies will increase natural gas usage over All of the Build alternatives, including Alternative the next decade. Oregon also has initiatives to D Refined, would enable conveyance modes that increase renewable energy sources, primarily would emit lower amounts of greenhouse gases wind and solar. per trip and encourage a substantial increase in All modes of conveyance available today produce trips made by bicycle and on foot. (Bicyclist and greenhouse gases either directly or indirectly (for pedestrian use with the Build alternatives is example, from the generation of electricity). estimated to be approximately 475 percent However, some modes produce lower amounts higher than with the No Build Alternative of greenhouse gases per person trip, or lower because of improved bicyclist and pedestrian amounts of per ton of goods transported. For facilities and connections.) various conveyance modes, the power methods In addition, the Build alternatives would maintain currently used include the following: the Willamette River crossing. Because this is the  Streetcars by electricity shortest distance and most efficient trip route for  Buses by diesel, natural gas, or biodiesel those that use the Sellwood Bridge, the Build  Trucks primarily by diesel alternatives would not increase VMT caused by  Cars mostly by gasoline, but some by natural out-of-direction travel. At the same time, because gas or electricity the Build alternatives would not add capacity to the route for motor vehicles, indirectly they all Local planning strategies to reduce greenhouse would encourage travelers to make trips by gases encourage the use of conveyances that public transit, where it was feasible. The produce the lowest amount of greenhouse gases differences among the Build alternatives related per trip. This strategy requires that: to potential greenhouse gas production would not be statistically significant.  More trips be taken by public transit, bicycle, or foot 3.21.3 Summary of Alternatives by  The distance of travel be the shortest and Differentiating Air Quality most efficient Impact  The trip be as free from congestion as There are no differences in air quality impacts possible among the Build alternatives because the OR 43 at SW Taylors Ferry Road intersection would Summary. In summary, strategies for reducing have similar traffic volumes and intersection greenhouse gases are complex. Much related to conditions with all Build alternatives. Greenhouse the implementation of solutions lies outside the gas emissions would be the same among all Build authority of the project. Enabling multiple modes alternatives, and likely less than the No Build would be the primary strategy of those that could Alternative, because the Build alternatives would be implemented through the project. encourage travel modes that would emit lower The No Build Alternative would not allow public levels of greenhouse gases per capita. (The Build transit (either streetcars or buses) across the alternatives would provide new bicyclist and bridge. In addition, it is a discouraging route for pedestrian facilities, reinstate transit service bicyclists and pedestrians. Therefore, the No across the bridge, and be designed to Build Alternative would offer little opportunity accommodate a future streetcar line.)

3-220 Sellwood Bridge Project F i n a l Environmental Impact Statement Hazardous Materials Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

3.22 Hazardous Materials Hazardous Materials Summary

3.22.1 Affected Environment The Build alternatives would potentially directly impact between 6 and 10 sites, and The study area has consisted of mixed residential, indirectly impact 2 sites, that are known or commercial, and industrial properties since at suspected to be contaminated with least 1925, when the Sellwood Bridge was hazardous materials. The project would constructed. Land use changes at specific sites define and minimize potential hazards through additional site investigations and have occurred, but as a whole, the area has comprehensive planning for contingencies remained mixed use. The land directly under the involving hazardous substances. east end of the existing bridge historically was used for a lumber mill with a sash-and-door manufacturing operation. As time progressed, a 3.22.2 No Build Alternative cabinet shop was added to the mill’s operations. Environmental This property is now the site of the Sellwood Consequences Harbor Condominiums. Based on historical aerial The only foreseeable adverse impacts in relation photographs, the area currently used for the to contaminated media are addressing potential Sellwood Riverfront Park appears to have been asbestos-containing material and lead-based paint low land that was filled. The area may have been on the existing bridge structure during any a landfill in the 1950s and 1960s. maintenance activities. There are 13 features of potential environmental concern in the study area, as identified in 3.22.3 Build Alternatives Table 3.22-1. Features of environmental concern Environmental are areas most likely to contain contaminated soil Consequences and/or groundwater. The list in Table 3.22-1 is derived from a report that contains a Impacts and Mitigation Common to comprehensive list of potential hazardous sites in All Build Alternatives the study area. In addition to the features The numbers associated with each feature of identified in Table 3.22-1, there is a high environmental concern discussed in this section likelihood that the existing bridge structure has correlate with the numbers in Table 3.22-1 and asbestos-containing material and lead-based paint. on Figure 3.22-1.

The feature identification number (ID No.) listed Direct Impacts. Each Build alternative would in the first column of Table 3.22-1 corresponds encounter the potential of asbestos-containing with the site numbers indicated on Figure 3.22-1. material and lead-based paint on the existing The contaminants of environmental concern have bridge structure as well as the following six been abbreviated in the table, but they are features of environmental concern: defined in the table notes and in a sidebar. 1. Twin Cedars Service Station, a former service station at 7712 SW Macadam Avenue 2. River View Service Station, a former service station at 8126 and 8128 SW Macadam Avenue

Sellwood Bridge Project F i na l Environmental Impact Statement 3-221 Hazardous Materials C hapter 3. Existing Environment, Anticipated Impacts, and Mitigation

3. Staff Jennings Property (formerly Staff realignment of underground utilities such as Jennings, Inc.), located at 8240 SW Macadam sewer and/or water supply lines. Due to the age Avenue, which had one leaking underground of the community and the number of former storage tank in 2006 and two other leaking underground storage tanks in the area, underground storage tanks there would be a high likelihood of encountering 4. River View Cemetery, located at 8421 total petroleum hydrocarbon (TPH) SW Macadam Avenue, which has one contamination from an unknown leaking underground storage tank underground storage tank.

5. Oregon Door Company, a former sawmill Indirect Impacts. Indirect impacts could that covered the area under the east end of include construction activities that would change the Sellwood Bridge and the area currently the groundwater level of contaminated aquifers. If occupied by the Sellwood Harbor there is any construction activity to lower the Condominiums, with a current address of groundwater level on the east end of the bridge, 220 SE Spokane Street contaminated groundwater could be encountered 6. Riverside Service Station, a former service at the following two sites: station at 530 and 536 SE Tacoma Street, had one leaking underground storage tank in 12. Bousley Albert Gas Station, a former gasoline 2006 service station located at 838 SE Tacoma Street In addition to the locations identified above, there would be the possibility of encountering contaminated soils during any upgrade or

TABLE 3.22-1 Features of Potential Environmental Concern Contaminant of Feature Environmental ID No. Facility Name Address Concern 1 Twin Cedars Service Station 7712 SW Macadam Avenue TPH, VOC, Pb 2 River View Service Station 8126 and 8128 SW Macadam Avenue TPH, VOC, Pb 3 Staff Jennings Property 8240 SW Macadam Avenue TPH, VOC, Pb (formerly Staff Jennings, Inc.) 4 River View Cemetery 8421 SW Macadam Avenue TPH 5 Oregon Door Company 220 SE Spokane Street TPH, VOC, PAH 6 Riverside Service Station 530 and 536 SE Tacoma Street TPH, VOC, Pb 7 Sellwood Riverfront Park SE Spokane Street and TPH, VOC, PAH, SE Oaks Park Way Metals 8 Office Furniture Refinishers 530 SE Tenino Street VOC, TPH 9 Anodizing Incorporated Parts 8222 SE 6th Avenue Metals, VOC 10 Sellwood Transfer Garage 531 SE Umatilla Street TPH, VOC 11 Masterscreen Products, Inc. 8225 SE 7th Avenue VOC 12 Bousley Albert Gas Station 838 SE Tacoma Street TPH, VOC, Pb 13 Bondy, J. (residence) 534 SE Nehalem TPH Notes: TPH = total petroleum hydrocarbon (such as gasoline, diesel, heating oil, motor oil) VOC = volatile organic compound (such as cleaning solvents, degreasers, paint thinners) PAH = polycyclic aromatic hydrocarbon (by-product of incomplete combustion) Pb = lead

3-222 Sellwood Bridge Project F i n a l Environmental Impact Statement Hazardous Materials Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

FIGURE 3.22-1 Features of Environmental Concern Site numbers correspond to the Feature ID Numbers listed in Table 3.22-1

13. J. Bondy, a residence located at 534 SE contaminated groundwater from impacted Nehalem Street, has a leaking underground aquifers. heating-oil tank with a cleanup process that has not been finalized  Implement construction-phase monitoring to identify and manage unknown or Mitigation. Mitigation measures are designed to unanticipated media. minimize impacts over the short and long term.  Characterize waste generated during The following proposed mitigation measures are construction (such as excavated soil, common to the Build alternatives: wastewater, and construction debris) and  Conduct a lead and asbestos survey of the assign each waste stream to appropriate existing bridge prior to construction or waste-disposal facilities. demolition. This work should include the  Implement other mitigation measures such as analysis of existing paint layers for total and controlling stormwater runoff from the toxicity characteristic leaching procedures for construction site, limiting access to heavy metals, such as cadmium, chromium, contaminated areas, avoiding cross- zinc, and lead. contamination or carryover of contaminated  Investigate and address areas of known material to clean areas, and identifying contaminated soil before or during appropriate waste disposal for all waste construction to limit exacerbation. These streams. measures could include direct removal of contaminated media, capping or covering contaminated soils, and pumping

Sellwood Bridge Project F i na l Environmental Impact Statement 3-223 Hazardous Materials C hapter 3. Existing Environment, Anticipated Impacts, and Mitigation

Total petroleum hydrocarbon, or TPH, is the term used for petroleum-derived compounds such as gasoline, diesel, heating oil, motor oil, and hydraulic fluid. When TPH is released to the environment, it tends to migrate downward in the soil until it reaches either a confining layer such as tight silts and clay or the water table, at which point it spreads out on top. If it reaches the groundwater, most of the TPH contamination would float on top, moving along with the general flow of the water table. A smaller fraction would dissolve into the groundwater, creating a groundwater plume. In low concentrations, TPH will naturally degrade into benign compounds. In higher concentrations, TPH will create a widespread plume. Volatile organic compound, or VOC, is the term for a wide range of chemicals used to make solvents such as degreasers, industrial cleaning solvents, and paint thinners. When VOCs are released to the environment, some break down and volatize very quickly; others break down very slowly and some break down into compounds that are more toxic than the original chemical. Lead (Pb) and heavy metals tend to remain on the surface of the soil. The small particles can be carried in stormwater runoff and blown dust, but for the most part remain in the topsoil. Lead was also used as a gasoline additive up until the late 1970s and early 1980s. This gasoline additive was in a liquid or dissolved phase, which, if released to the environment, could migrate deeper into the soil and potentially contaminate the groundwater. Acids and caustics used in anodizing shops allow greater mobility of dissolved metals in soil and groundwater. Lead and heavy metals do not break down. Polycyclic aromatic hydrocarbons, or PAHs, are found naturally in the environment and can also be man-made. PAHs are most commonly created when products like coal, oil, gas, wood, and garbage are burned but the burning process is not complete. Once released into the

Contaminants of Environmental Concern environment, some PAHs can degrade naturally under very specific conditions. However, it is more common for PAHs to accumulate in soils and sediments. PAHs are generally not soluble, although some PAH compounds can move into the liquid phase under the right conditions. Asbestos is a common name given to a group of naturally occurring mineral fibers. Asbestos was commonly used in pipe wraps, insulation, gaskets, concrete pipe, and adhesive mastics until the 1970s to 1980s. Asbestos is only a hazard when small particles become airborne, are inhaled, and deposited within the lungs. Asbestos fibers do not break down.

Alternative-specific Impacts Alternative B Alternative B would encounter the same six The numbers associated with each feature of features of environmental concern identified environmental concern discussed in this section previously (Features 1 through 6), as well as one correlate with the numbers in Table 3.22-1 and additional feature of environmental concern (with on Figure 3.22-1. the temporary detour bridge option only):

Alternative A 7. Sellwood Riverfront Park, located northwest Alternative A would encounter the same six of SE Spokane Street and SE Oaks Park Way, features of environmental concern identified which had earth-moving activity, and there is previously (Features 1 through 6), as well as one a possibility that this site was a former landfill additional feature of environmental concern: Alternative C 7. Sellwood Riverfront Park, located northwest Alternative C would encounter the same six of SE Spokane Street and SE Oaks Park Way, features of environmental concern identified which had earth-moving activity, and there is previously (Features 1 through 6), as well as four a possibility that this site was a former landfill additional features of concern:

3-224 Sellwood Bridge Project F i n a l Environmental Impact Statement Hazardous Materials Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

8. Office Furniture Refinishers, a former environmental concern identified previously furniture refinishing shop located at (Features 1 through 6), as well as one additional 530 SE Tenino Street; this site was also an feature of environmental concern: auto repair shop in the 1960s 7. Sellwood Riverfront Park, located northwest 9. Anodizing Incorporated Parts, a metal of SE Spokane Street and SE Oaks Park Way, refinishing shop located at 8222 SE 6th which had earth-moving activity, and there is Avenue a possibility that this site was a former landfill 10. Sellwood Transfer Garage, a repair shop located at 531 SE Umatilla Street Alternative D Refined (Preferred Alternative) 11. Masterscreen Products, Inc., an industrial No additional features of environmental concern facility located at 8225 SE 7th Avenue are associated with Alternative D Refined. The Alternative D only features of environmental concern are the No additional features of environmental concern six identified under Common Impacts (Features 1 are associated with Alternative D. The only through 6). features of environmental concern are the six identified under Common Impacts (Features 1 3.22.4 Summary of Alternatives by through 6). Differentiating Hazardous Materials Impact Alternative E The main bridge structure for Alternative E would encounter the same six features of

TABLE 3.22-2 Summary of Alternatives by Differentiating Hazardous Materials Impact No Impact Type Build A B C D E D Refined Number of sites potentially directly impacted 0 7 6a 10 6 7 6 Number of sites potentially indirectly impacted 0 2 2 2 2 2 2 a With the temporary detour bridge option, seven sites potentially would be directly impacted.

Sellwood Bridge Project F i na l Environmental Impact Statement 3-225 Relationship of Short - t erm Uses of the Environment and Long - t erm Productivity Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

with the maintenance and enhancement of long- 3.23 Relationship of Short- term productivity. term Uses of the Environment and Long- 3.23.2 Build Alternatives term Productivity Short-term Uses of the Environment All Build alternatives would involve replacing This section discusses the trade-offs of local existing infrastructure with new infrastructure. In short-term impacts and resource uses, and the the short-term, the effects of the Build maintenance and enhancement of long-term alternatives would likely be greater than those of productivity related to the Sellwood Bridge the No Build Alternative. The Build alternatives project. would have local short-term effects on the surrounding environment for three to four years 3.23.1 No Build Alternative of construction. Even with the best planning and Short-term Uses of the Environment coordination, construction would be disruptive The No Build Alternative would have local short- to people who live, work, and travel in the area. term effects on the surrounding environment for Examples of short-term natural environment approximately 1 year of maintenance activities to effects would include vegetation removal, soil keep the bridge operational and in as good a erosion, water quality degradation, increased condition as possible for the next 20 years. noise levels, and increased levels of particulates in Examples of short-term environmental effects the air. Following construction, these increased would include increased noise levels, traffic impact levels would diminish, except for diversion, increased commuter cost and time, and vegetation removal. New vegetation planted after no bicycle or pedestrian facilities to cross the construction, especially trees, would take a river. Economic activity in the bridge area would significant amount of time to mature. decrease from construction activities. Because traffic would not be allowed across the bridge for Examples of short-term social environment approximately 6 to 8 months, decreased traffic effects if no bridge crossing were provided during volumes would impact businesses that rely on construction would include traffic diversion, drive-by traffic. increased commuter cost and time, and no bicycle or pedestrian facilities to cross the river. Long-term Productivity With or without a bridge crossing during The No Build Alternative would not provide construction, construction activities would long-term productivity because additional decrease the economic activity in the bridge area. investment would be required to continue to use Decreased traffic volumes would impact the bridge beyond a 20-year period, it would not businesses that rely on drive-by traffic. Other eliminate the existing 10-ton weight limit on the short-term social environment impacts would bridge, it would not improve the geometric include temporary displacement of parking spaces deficiencies of the interchange with OR 43 on the and land temporarily committed during west side, it would not improve the existing construction to staging and laydown areas. bicyclist and pedestrian facilities, and it would not retrofit the bridge to existing seismic standards. Long-term Productivity For these reasons, the No Build Alternative Over the long term, a rehabilitated or new bridge would not meet the project’s purpose and need would improve the short-term local effects on (Sections 1.5 and 1.6). The short-term effects of the surrounding environment. Traffic congestion the No Build Alternative would not be consistent during construction would be replaced by

3-226 Sellwood Bridge Project F i n a l Environmental Impact Statement Relationship of Short - t erm Uses of the Environment and Long - t erm Productivity Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation long-term improvements in traffic mobility on the natural environment by removing invasive OR 43, reinstatement of transit service across species, restoring the area with native species, the bridge, structural capacity to accommodate and restoring and enhancing streams for use by various vehicle types (including transit vehicles, fish species. Some of the right-of-way used during trucks, and emergency vehicles), and the construction could be returned to productive structural integrity of a rehabilitated or uses, such as for redevelopment or for park or new bridge. recreational use.

All Build alternatives would implement sustainable Transportation improvement projects are based transportation—improved bicycle and pedestrian on planning efforts that consider the need for facilities across the bridge, improved connections existing and future multi-modal transportation for bicyclists and pedestrians to existing facilities, system requirements, and roadway safety, design, and the reinstatement of transit service across and structural integrity of the transportation the bridge. Improved bicyclist and pedestrian infrastructure. All modes would benefit from facilities and connections to area parks and improving the structural capacity of the bridge to recreational resources would make the area safely accommodate various vehicle types more attractive to bicyclists and pedestrians. A (including transit vehicles, trucks, and emergency rehabilitated or new bridge would also be vehicles); increasing the structural integrity of the designed to accommodate streetcar service bridge to withstand moderate seismic events; across the bridge. (The City of Portland’s Portland implementing a roadway design that would meet Streetcar System Concept Plan [2009] designates applicable standards; improving bicyclist and the Sellwood Bridge as a future streetcar pedestrian facilities; and improving mobility on corridor.) Truck service would be reinstated OR 43. All Build alternatives would contribute to across the bridge, improving the cost efficiency of a long-term network of sustainable integrated business deliveries. The Build alternatives would transportation. Therefore, the short-term effects also treat stormwater runoff. Improved water of the Build alternatives would be consistent with quality might promote slightly increased local the maintenance and enhancement of long-term productivity in the Willamette River. Mitigation productivity. planned for the west-side parks would enhance

Sellwood Bridge Project Draft Environmental Impact Statement 3-227 Irreversible and Irretrievable Commitment of Resources Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

following irreversible and irretrievable 3.24 Irreversible and commitments of resources would occur under Irretrievable the Build alternatives:

Commitment of  The conversion of vegetation and riparian Resources areas to provide for new transportation right-of-way and infrastructure. The Build This section discusses the irreversible and alternatives would shift the land used for irretrievable commitment of resources related to transportation closer to the Willamette River the Sellwood Bridge project. and remove existing vegetation and riparian area. 3.24.1 No Build Alternative Maintenance activities on the existing Sellwood  The loss of the Sellwood Bridge, a historic Bridge under the No Build Alternative would resource eligible for the National Register of involve the commitment of physical, human, and Historic Places. fiscal resources. The following irreversible and irretrievable commitment of resources would  The adverse impact to River View Cemetery occur under the No Build Alternative: and the Superintendent’s House in River View Cemetery, which are both eligible for  Physical materials used for maintenance the National Register of Historic Places. activities.  Physical materials used to build the project  Labor for maintenance activities. Use of the (such as aggregate used to make cement and labor would not have an adverse effect upon asphalt, steel needed to make rebar and steel continued availability of labor resources. The structures, oil to make asphalt, and fill regional pool of necessary skills is sufficient material). These materials are finite to meet the project needs without any resources, but they are not currently in short disruption in development activities. supply.

 Local public service efforts expended during  Labor for construction efforts. Use of the maintenance activities, including emergency labor would not have an adverse effect upon service providers. continued availability of labor resources. The regional pool of necessary skills is sufficient  The energy used during maintenance to meet the project needs without any activities. Energy consumed would include the disruption in development activities. gasoline used by vehicles to drive on the roadway; the electricity needed to keep lights  Local public service efforts expended during and electrical systems running; and gasoline, project construction, including those by diesel fuel, oil, and electricity needed for the emergency service providers. maintenance activities.  The energy used during construction and  Local (and, if applicable, federal and state) operation. Energy consumed would include funds for maintenance activities the gasoline used by vehicles to drive on the roadway; the electricity needed to keep lights 3.24.2 Build Alternatives and electrical systems running; and gasoline, Rehabilitating or replacing the existing Sellwood diesel fuel, oil, and electricity needed for Bridge would involve the commitment of natural, construction. The amount of energy physical, human, and fiscal resources. The consumed during construction would be a

3-228 Sellwood Bridge Project F i n a l Environmental Impact S t a t e me nt Irreversible and Irretrievable Commitment of Resources Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

small fraction of the energy consumed The Build alternatives would require the annually for transportation in Oregon, and commitment of the resources listed previously. would not put substantial additional demand The proposed commitment of natural, physical, on energy sources or fuel availability in the human, and fiscal resources is based on the belief region. that businesses, employees, and residents of the immediate area and the region would benefit  Land used during operation for from the improved quality of the transportation transportation facilities. Although these system under the Build alternatives. The Build facilities conceivably could be converted to alternatives would improve transportation, other land uses at some time in the future, accessibility, and safety, as well as providing there is no reason at present to believe that greater availability to an integrated, sustainable such a conversion would be necessary or transportation system. These benefits would desirable. consist of increased structural integrity, improved  Federal, state, and local funds for roadway safety and design, reinstated transit construction and operation. service, and improved bicyclist and pedestrian facilities and connections. These benefits are  Potential loss of archaeological and historic anticipated to outweigh the commitment of resources from presently unknown sites, resources. which could occur during construction.

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Sections 3.25.2 (general summary) and 3.25.3 3.25 Cumulative Impacts (by resource). Cumulative impacts on the environment result from the incremental impact of the proposed 3.25.1 Past and Present Actions action when added to other past, present, and Native Americans have occupied or traveled reasonably foreseeable future actions. A number through the study area for thousands of years. of actions have been (or are likely to be) Those activities had little effect on current undertaken that, when combined with any of the environmental conditions in the study area. In the Build alternatives, would have cumulative impacts 1800s, European-American settlement began in on the social and natural environment. To the Portland and Vancouver area, which evaluate cumulative impacts of all Sellwood increased the local population and began to Bridge alternatives (the No Build Alternative and change the environment in the study area. The the Build alternatives), the project team: following summary of key historic events provides a basis for analysis of past and present • Defined a geographic study area for each actions that have helped shape current resource. conditions. • Established a time frame of reference for • 1840s. The first European-American evaluating how past actions have shaped the settlements were established, primarily social and natural environment of the study residential and related businesses along the area, and suggested how future actions might banks of the river. Development eventually further change the conditions resulting from spread eastward. these past actions. The “past” runs from the 1840s (settlement of the Sellwood area) to • 1850s. Steamboats began serving river the present (2010). Future impacts are communities on the lower Willamette River, estimated to 2030, by which the reasonably including the Sellwood area. foreseeable actions (listed in Section 3.25.2) are expected to be implemented. • 1866. Reverend John Sellwood purchased more than 300 acres of land on the east side • Identified the current status, viability, and of the Willamette River. historical context for each resource. • 1873. Willamette Falls locks were • Identified direct and indirect impacts of the constructed and industrialization began project that could contribute to a cumulative around the falls. Construction of the locks impact. (Direct and indirect impacts are and channel blasting altered the flow of the documented by discipline in Sections 3.1 river upstream of the Sellwood area and through 3.22 of this Final Environmental reduced the tendency of the Willamette Impact Statement [FEIS].) River to flood.

• Identified other current and reasonably • 1882. Fish ladder was installed at Willamette foreseeable actions (listed in Section 3.25.2). Falls because industrialization of the area had diminished salmon and steelhead runs. • Using the information from the process described, identified and assessed cumulative Sellwood was officially established. The plat impacts, and assessed the need for mitigation. map, drawn for the subdivision of the property, has as its boundaries the • Documented the results of the cumulative Willamette River on the west edge, impacts analysis, which are provided in SE Ochoco Street to the south, SE 19th

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Street on the east, and SE Miller Street on estimated total of 365,000 crossings. The the north. east-side landing was at the end of SE Spokane Street in Sellwood, and the River View Cemetery was established. The west-side landing was at 8420 SW Macadam cemetery originally included the existing Avenue, now the location of the Staff Jennings west-side interchange area and Powers property. Marine Park. Oaks Amusement Park was opened. The park • 1887. Portland & Willamette Valley Railroad attracted people to the area for recreation. (later the Southern Pacific Railroad) line on the west side began operation. The rail line is • Early 1900s. The first branch of the now used by the Willamette Shoreline Portland Library Association was opened in Trolley. Sellwood; the first public swimming pool in the City of Portland was constructed in • 1888. A hydroelectric dam was constructed Sellwood Park; and the first branch of the at Willamette Falls, upstream of the Sellwood Portland YMCA opened in Sellwood. area, which reduced the tendency of the Willamette River to flood. East Side Mill and Lumber Company and the Oregon Door Company factory dominated • 1880s and 1890s. The intersections of the large parcels west of SE 6th Avenue. SE Umatilla Street and SE 17th Avenue and of Single-story residences were only sparsely SE Tacoma Street and SE 17th Avenue situated on large lots between SE Nehalem became centers of commercial activity. Street and SE Umatilla Street from Avenue; east of • 1892. Sellwood streetcar line was completed. SE 7th Avenue to SE 9th The line provided service down SE Milwaukie SE 9th Avenue, many lots were subdivided Avenue to SE Bybee Street, turned west on and developed into single-family residences. SE Bybee Street, and then traveled south on • 1914. Superintendent’s House at River View SE 13th Avenue. With improved Cemetery was constructed. transportation, Sellwood became slightly more urban. Electrical lines were strung to • 1925. Sellwood Bridge was opened and provide power to the streetcars. This line connected to SE Tacoma Street on the east expansion increased the number of power side and what is now OR 43 on the west lines available for other uses. Many new side. SE Tacoma Street quickly transitioned businesses that came to the area during this from a relatively quiet residential street to a era were factories and mills, whose owners major local arterial. recognized the economic advantages of sites • 1926. City of Portland acquired land for for their companies near these new sources Powers Marine Park. of electricity and along the riverbank for water transport. • Late 1920s and 1930s. Construction of OR 99E (SE McLoughlin Boulevard) • 1893. Sellwood was annexed to the City of completed. With the Sellwood Bridge, this Portland. Interurban electric railway service roadway encouraged growth around the was established between Oregon City and SE Tacoma Street corridor and its Portland. intersection with SE 13th Street. • 1905. The John F. Caples ferry began • 1958. City of Portland acquired land for operations, making 56 trips a day, with an Oaks Pioneer Park.

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• 1961. Oaks Pioneer Church was moved from • 2002. The City of Portland adopted the Milwaukie to Oaks Pioneer Park. Tacoma Main Street Plan (City of Portland, 2001). This multi-modal transportation plan • 1965. City of Portland acquired land for supports regional and local land-use Sellwood Riverfront Park. objectives for SE Tacoma Street. • 1970s. City of Portland established the • 2003. Springwater Corridor Trail was current boundaries for the combined opened in the study area. Sellwood-Westmoreland neighborhood, which are the Willamette River on the west, • 2004. Weight restrictions were instituted on SE Ochoco Street on the south, and the Sellwood Bridge and bus service across SE McLoughlin Boulevard along the north the bridge was stopped. and east. • 2005. City of Portland Transportation System • 1980. City of Portland Comprehensive Plan, Plan (originally adopted in 1996) was updated which designated long-term land-use planning and adopted. The plan designated the for the study area, was originally adopted. functional classifications to OR 43, SE (Plan was updated in 2006.) Tacoma Street, and other study area roadways. Sellwood Harbor Condominiums were constructed south of the Sellwood Bridge • 2005 to present. Ecological restoration east bridgehead. activities were conducted at Willamette Moorage Park and Powers Marine Park by • 1983. Freight service on the Southern Pacific the City of Portland. Railroad (west side of river) ended. • 2007. Willamette River Water Trail was • 1987. River Park Center office building north established; water trail guide was published. of the Sellwood Bridge east bridgehead was constructed. • 2008. Multnomah County distributed the Sellwood Bridge Draft Environmental Impact • 1988. City of Portland adopted the Statement (Federal Highway Administration Willamette Greenway Plan, whose goal was “to [FHWA] et al., 2008), which evaluated five protect, conserve, maintain, and enhance the Build alternatives and a No Build Alternative scenic, natural, historical, economic, and to rehabilitate or replace the existing recreational qualities of lands along the Sellwood Bridge. Willamette River.” • 2009. City of Portland approved the Portland • 1999. Metro adopted the South Willamette Streetcar System Concept Plan, which provides River Crossing Study. The study established guidance on where the City should expand its regional policy reinforcing the main street existing streetcar system. The plan identifies land-use objectives of SE Tacoma Street and the OR 43 corridor between downtown directed that improvements to the Sellwood Portland and Lake Oswego (“Portland to Bridge and SE Tacoma Street support these Lake Oswego”) and the Sellwood Bridge and objectives. SE Tacoma Street (“Tacoma Street • 2001. River Park Condominiums north of the Extension”) as streetcar corridors. Sellwood Bridge east bridgehead was constructed.

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3.25.2 Foreseeable Actions • Resumption of bus transit service across the Sellwood Bridge • Provision of light rail transit service on Oregon 99E (Portland–Milwaukie Light Rail • Removal of weight/load restrictions on the Project) Sellwood Bridge

• Multi-modal improvements to Oregon 99E • Continued restoration activities at Sellwood between the Ross Island Bridge and Riverfront Park, Willamette Moorage Park, Milwaukie and Powers Marine Park

• Multi-modal improvements to SE Tacoma • Private land development and redevelopment Street between the Sellwood Bridge and in the study area. Future private development Oregon 99E would be expected to be consistent with the City of Portland Comprehensive Plan (City of • Improvements to the Willamette Greenway Portland, 2006). The City of Portland Bureau Trail (West Bank) between the Sellwood of Development Services confirmed that no Bridge and Portland city limits applications for private developments had • Provision of Intelligent Transportation System been submitted within the study area. Land (ITS) enhancements on OR 43 between the along SE Tacoma Street at the east Sellwood Bridge and SW Hood Street/ bridgehead is designated for commercial land SW Bancroft Street uses in the Comprehensive Plan. One individual who owns a two-block area at the east • Construction of bicyclist and pedestrian bridgehead has expressed interest in improvements on SW Taylors Ferry Road redeveloping the property to contain two between SW 35th Avenue and OR 43 four-story buildings with condominiums on the upper stories and businesses on the • Provision of ITS enhancements to four traffic street level. Plans are on hold pending signals on SE Tacoma Street between the decisions regarding the Sellwood Bridge, Sellwood Bridge and SE 45th Street additional land acquisition, and market • Construction of a shared-use path segment conditions. On the west end of the Bridge, to complete the Springwater Corridor Trail limited to no potential for private between SE Umatilla Street and SE 19th development exists because of the River Avenue at SE Ochoco Street View Cemetery, the transportation infrastructure, and park and recreational • Improvements to the SE Spokane Street and facilities. SE Umatilla Street bicycle boulevards 3.25.3 Future Cumulative Impacts • Construction of streetcar/commuter transit line or bus rapid transit along OR 43 (Lake This subsection generally describes the Sellwood Oswego to Portland Transit Corridor Study) Bridge area after implementation of any Build alternative and the foreseeable future actions • Installation of streetscape and pedestrian described previously. The next subsection improvements on SE Tacoma Street (3.25.4) provides a more detailed description of future cumulative impacts by specific social and • Construction of increased vehicle capacity on natural environmental resource topics. regional facilities in the vicinity of Sellwood, such as OR 99E and OR 224 The Build alternatives would substantially improve the opportunity for sustainable

Sellwood Bridge Project Final Environmental Impact Statement 3-233 Cumulative Impacts Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation multi-modal travel. The Sellwood Bridge area limited amount of infrastructure. It is likely that would be a multi-modal transportation hub with streetcar service, if implemented, would be improved bicyclist and pedestrian facilities and available much later, based on its priority level in connections; reinstatement of transit service the Portland Streetcar System Concept Plan. The across the bridge; and a station for the west-side bridge project design anticipates the potential streetcar between downtown Portland and Lake future streetcar, so it would be “project ready” Oswego. More person trips would be made when the streetcar was funded, assuming that the across the bridge and through the OR 43 bridge and interchange had been funded prior to corridor using sustainable transportation modes the streetcar. than under current conditions. More trucks would use SE Tacoma Street Bicyclist and pedestrian facilities across the river because truck service would be reinstated across would be significantly improved, as would the bridge. The truck traffic would be composed connections from the bridge to the parks and primarily of delivery trucks using the bridge to trails on both sides of the river. On the east side, access Sellwood and other areas in southeast the Springwater Corridor Trail gap south of the Portland. Large trucks would not be expected Sellwood Bridge would be completed. because SE Tacoma Street is not a state highway, Connections between the trail and the west side it is not designated as a major freight route, and of the river (via the Sellwood Bridge) would be the relatively congested nature of the street does improved. On the west side, the Willamette not attract through-truck traffic. Future land-use Greenway Trail (West Bank) between downtown planning activities are focused on enhancing a and the Portland city limits would be completed, pedestrian-friendly environment for SE Tacoma providing a continuous off-street bicyclist and Street, so the route would remain unattractive to pedestrian facility to downtown Portland through anything but local truck traffic. Despite more Johns Landing and the South Waterfront areas. truck traffic, SE Tacoma Street would not The bicyclist and pedestrian facilities on the become a barrier to the cohesion of the bridge deck would provide the connection Sellwood community. between southeast and southwest Portland and Existing land uses and land-use trends would to the Portland metropolitan area’s 40-Mile Loop continue. The area would likely become more trail system. attractive because of the high number of Transit service on SE Tacoma Street and across recreational and open-space amenities; accessible the bridge would be reinstated. Transit service transit and bicyclist/pedestrian commuting on SE Tacoma Street would provide a connection options; restaurants and cafes within walking between the Sellwood Bridge, recreational trails, distance; and pleasant pedestrian environment. and the South Corridor light rail transit line on This trend would increase the popularity of OR 99E. New transit stops at the west-side Sellwood as a regional destination. interchange would provide a multi-modal The popularity of the area would induce demand connection to the Willamette Greenway Trail for redevelopment and increased density. The (West Bank) and the future streetcar on the historic housing stock would be maintained, but Willamette Shoreline Trolley line. The SE Tacoma Street, SE 13th Avenue, and reinstatement of transit service would induce a SE 17th Avenue would moderately increase in slight mode shift from automobile to transit and density. Redevelopment would occur within its non-motorized modes. existing zones in the adopted City of Portland Initially, transit would consist of bus transit, Comprehensive Plan (City of Portland, 2006). This because it could be implemented rapidly with a type of development would be similar to that of

3-234 Sellwood Bridge Project Final Environmental Impact Statement Cumulative Impacts Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation other Portland neighborhoods, such as Belmont However, all of these modes are still active in and in southeast Portland and the NW 23rd Avenue around the bridge, but with a different focus and area in northwest Portland. These areas have ridership.. . multiple-story commercial, residential, and With population growth in Sellwood, southeast mixed-use buildings on the main street, but the Portland, and the southeast area of the Portland historic housing stock on the side streets has metropolitan area and construction of the been maintained. Moderately increased density existing Sellwood Bridge in 1925, SE Tacoma would be a cumulative benefit to the Portland Street changed from a local neighborhood street region as a whole because it would accomplish a to a major local arterial. Originally, the west side regional land-use objective to increase density in of OR 43 in the vicinity of the Sellwood Bridge areas with transit service and other multi-modal was all River View Cemetery, but is now a travel options. transportation corridor that includes OR 43, the The City of Portland will continue to conduct OR 43/Sellwood Bridge interchange, the railroad biological restoration and enhancement activities line, and city parks. . The west-side interchange that would improve the overall environment on area is being planned as a significant the west side. However, the west side would transportation hub. Several transportation modes have less parkland, natural area, and riparian area. will come together at this hub, and exchanges In addition, the wildlife habitat would be between modes will be important. fragmented between the Willamette River riparian area and upland vegetation. It is likely • The Build alternatives would provide that Powers Marine Park and Willamette improved traffic operations between Moorage Park would experience more recreation southwest and southeast Portland through at use because of increased visibility from bicyclists least the year 2035, but eventually the facility and pedestrians using the Willamette Greenway would reach capacity for longer periods Trail (West Bank) and from streetcar riders. during the day if demand continues to Improved access to Powers Marine Park and increase. Willamette Moorage Park would be detrimental • The Build alternatives would contribute to to these natural-area parks and could increase modal change for trips between southwest the number of transients camping in the parks. and southeast Portland, and would be able to However, because of the City’s ongoing support many more person trips than the No restoration activities, it is likely that the health of Build Alternative while maintaining the same natural areas at Powers Marine Park and level of motor-vehicle trips. The Willamette Moorage Park, including the Stephens reinstatement of bus service across the Creek area, would improve. This improved bridge would be expected to stimulate a environment would increase the amenity value of mode change from automobile to transit for these parks, which would be an asset for both the some trips. By restoring trucks to the bridge, South Portland and the Sellwood neighborhoods. out-of-direction travel for delivery trucks would no longer be required, which would 3.25.4 Future Cumulative Impacts improve the efficiency of the overall by Discipline transportation network between southwest Transportation and southeast Portland, and incrementally The transportation infrastructure in Sellwood, improve the efficiency of the transportation southwest Portland, and southeast Portland has network within the Portland area. changed as transportation technology has evolved from water to rail to motorized vehicles.

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• Although it is expected that the number of bicycles, pedestrians, and passenger cars. The vehicles on the Sellwood Bridge would be streetcar station and bus stops would provide similar for all alternatives (including the No transfers between modes within the Build Alternative), the vehicle mix would be interchange. More streetcar trips beyond the different, with some traffic being heavy immediate Sellwood Bridge vicinity in vehicle trips (trucks and buses) with the Build southwest and southeast Portland would be alternatives. Because bicyclist and pedestrian expected. The streetcar would incrementally facilities and connections would also be increase non-motorized trips within improved, more person trips over the bridge southwest and southeast Portland. would occur, but without an increase in the number of motorized vehicles, as is expected Bicyclists and Pedestrians for the No Build Alternative. Bicyclist and pedestrian facilities have incrementally improved in the vicinity • Compared to current conditions, by the year (approximately 0.5 mile) of the Sellwood Bridge 2035, all alternatives would be expected to over the last 30 years. These improvements have produce a 33 percent increase in motorized included construction of facilities such as the traffic using the Sellwood Bridge (to 39,000 Springwater Corridor Trail and designated bicycle vehicles). The bicyclist and pedestrian boulevards on SE Spokane and SE Umatilla facilities with the Build alternatives would be streets. The Sellwood Bridge, however, remains a expected to produce an approximately 500 substantial barrier for bicyclists and pedestrians percent increase in trips compared to the No between southwest and southeast Portland. Build Alternative, resulting in approximately 9,350 person trips daily by these two modes. • The Build alternatives would enhance existing The cumulative impact of any of the Build bicyclist and pedestrian connections to the Alternatives would be a substantial shift in Springwater Corridor Trail; the 40-Mile Loop modal split across the Sellwood Bridge, with trail system; SE Spokane Street and 19 percent of the traffic traveling by non- SE Umatilla Street (which are City-designated motorized modes in the future. Increased bicycle boulevards); and planned connections non-motorized trips would provide far with OR 43. The Build alternatives would greater efficiency of the transportation facility supplement west-side bicyclist and pedestrian than would be achievable with the No Build improvements, facilities provided by the Alternative. More non-motorized trips Oregon Health & Science University Aerial beyond the immediate Sellwood Bridge Tram, and improvements and extension of vicinity in southwest and southeast Portland the streetcar line from the South Waterfront would be expected, as well. An increase in area. The cumulative impact of these non-motorized trips with any of the Build enhancements would substantially support alternatives would incrementally improve the Portland’s plan for multi-modal efficiency of the transportation network transportation and sustainability goals. within southwest and southeast Portland. The • The Build alternatives would increase bicyclist proposed streetcar on the west side would and pedestrian travel within and between increase mobility between the Sellwood southwest and southeast Portland. More Bridge area and downtown Portland. If all bicyclist and pedestrian trips beyond the plans were realized, the west-side immediate Sellwood Bridge vicinity in interchange would become a hub for multiple southwest and southeast Portland would be motorized and non-motorized modes of expected after bicyclist and pedestrian surface travel, including buses, streetcar, facilities and connections were enhanced.

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Right-of-Way and Relocation service from utility providers would not be Within the general vicinity (approximately compromised; no cumulative impacts arising 0.5 mile) of the existing Sellwood Bridge, on the from the transportation project would occur. west side of the Willamette River, previous The project is not expected to preclude any transportation projects and improvements in the future expansion of utilities, if that should area acquired land from River View Cemetery (in become necessary. the 1920s) and also created park and recreational Land Use facilities between the roadway and the river. It is expected that future land uses on the west On the east side of the Willamette River, the side of the Willamette River within the general area changed from industrial uses to commercial vicinity (approximately 0.5 mile) of the existing uses, then to residential and commercial uses. Sellwood Bridge would be similar to current-day The area available for redevelopment on the east land uses because the amount of land that could side of the Sellwood Bridge is limited. However, be developed or redeveloped (most of the land is this area could be redeveloped and retain uses River View Cemetery or parkland) would similar to today’s uses. Because repair, continue to be limited. rehabilitation, or replacement of the bridge On the east side, the popularity of the Sellwood would relieve uncertainty about the future of the neighborhood has increased because of its bridge, development of these properties could proximity to downtown Portland and other parts occur fairly rapidly after the project was of the region; its park and recreational facilities; underway or completed. and its neighborhood livability. Sellwood’s • Because there is limited land available for popularity has increased population density within development, the Build alternatives would the neighborhood. not affect the long-term viability of the • The City of Portland Comprehensive Plan (City commercial or residential character of the of Portland, 2006) identifies long-term general vicinity of the Sellwood Bridge; desired land uses for the Sellwood minimal cumulative right-of-way impacts neighborhood. Because land available for new would be expected. development within the neighborhood is • Following construction, some of the land limited, the cumulative impact of new purchased for the purposes of deconstructing development would be small. However, the the existing bridge or because access was Sellwood neighborhood would become eliminated would become available for moderately denser from redevelopment of redevelopment. With Alternative C, the Staff existing land uses. More urban land uses Jennings property would likely be converted (such as mixed-use retail/residential, to park use. With Alternative E, vacated land condominiums, apartments, and transit- on the east side could be redeveloped for oriented development) would be expected to park or residential use. occur in the Sellwood neighborhood, particularly along SE Tacoma Street. Utilities As the area has developed, new utilities have • The Sellwood neighborhood would likely been constructed, implemented, and modernized. become more populated, which would benefit the Portland region as a whole by • All impacted utilities would be replaced, accomplishing the regional land-use objective reconstructed, and realigned as the project of increasing density in certain urbanized was constructed. The long-term level of areas. Local businesses would benefit through

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an expanded local customer base. The Economic increased neighborhood population could Because of its proximity to the Willamette River, also be considered a negative effect for the Sellwood neighborhood has historically residents unhappy with increased density. shown economic vitality. The area between the • The neighborhood would experience an river and SE Sixth Avenue developed as an increase in truck traffic, especially along industrial area where lumber mills and wood SE Tacoma Street. Although, for some product factories were located. The river was residents, the increased truck traffic could used to deliver logs to the mill. Later, the railroad detract from the quality of the street served this industrial area. The railway tracks environment, it would be unlikely to create a were probably located next to the river because barrier to community cohesion. While of the gradient that floodplains offer. Now the improved truck access would allow more river attracts recreationists, residents interested efficient servicing of existing residential and in views of the river, and commercial offices (for commercial land uses, SE Tacoma Street is which the river provides positive ambiance). The not expected to become an attractive popularity of the Sellwood neighborhood just through route for very large cargo trucks. It beyond the bridge’s location has cumulatively is expected that the increased truck usage on benefited local businesses near the bridge, and the bridge would support delivery of goods the bridge gives access for residential areas on and services to the local area. Large trucks the west side to Sellwood businesses. would not be expected because SE Tacoma • The Sellwood neighborhood would likely Street is not a state highway, it is not become more vibrant because of the high designated as a major freight route, and the number of recreational open-space amenities, travel environment would remain congested the transit and non-motorized travel and slow. Future land-use planning activities accessibility, and the pedestrian-oriented are focused on enhancing a pedestrian- commercial core along SE Tacoma Street. friendly environment for SE Tacoma Street. These cumulative impacts could benefit local Despite more truck traffic, SE Tacoma Street businesses. would not become a barrier to the cohesion of the Sellwood community. The commuting • The Sellwood neighborhood could become habits of Sellwood residents would shift moderately dense in character from toward non-automobile modes as transit and improved motorized and non-motorized bicyclist-and-pedestrian facilities and access, expanding the customer base for local connections continued to improve. Changed businesses. Business activity would expand commuting habits might lead to more transit- moderately, and local employment oriented development and improved transit opportunities would increase slightly. service. Social Elements • In off-peak hours, the parking supply in The period of development between 1892 and Sellwood might be stressed by its attraction 1925 was an era of substantial growth for the as a regional shopping and entertainment Sellwood community. Sellwood had already destination. This could necessitate demand or grown into a working-class suburb of Portland supply measures such as more aggressive when it was annexed to the City in 1893. One of metering, on-street parking spaces, and the new businesses was the East Side Mill and construction of parking garages. Lumber Company in Sellwood, located at the foot of what is now SE Spokane Street, near the

3-238 Sellwood Bridge Project Final Environmental Impact Statement Cumulative Impacts Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation landing for the Sellwood Ferry. One of the prices and, therefore, the median income of its existing bridge piers goes through what was once residences. part of the mill. The Sellwood neighborhood has maintained vitality, and many of the homes have • With the Build alternatives, populations been renovated in the last 30 years. The dependent on transit, bicycle, and pedestrian commercial district was one of the first in the transportation would have increased Portland metropolitan area to be rejuvenated. opportunities for using these modes because The Sellwood neighborhood has strong service and facilities between southwest and community involvement, which consistently southeast Portland would be improved. protects and enhances the neighborhood’s small- Parks and Recreation town atmosphere. Within southwest and southeast Portland, the • The Sellwood neighborhood would land designated for park and recreational facilities experience a moderate increase in the has increased since 1926. At that time, the land number of service-based businesses available for Powers Marine Park was acquired. Over the to reflect the moderate increase in years, land for other parks (including the population density. Willamette Moorage Park, Sellwood Riverfront Park, and Oaks Pioneer Park) has also been • Improved emergency and medical response acquired. Recreational trails have been services across the river would be sustained, constructed. The most recent trail is the which would benefit southwest and southeast Springwater Corridor Trail, which opened in the Portland residents. study area in 2003. Paddling and motorized boating on the Willamette River in the Sellwood • The bicycle/pedestrian bridge (Alternative A) and the alignment of Alternative E could Bridge area has increased. Future improvements diminish the appeal of Oaks Pioneer Park and to the Willamette Greenway Trail (West Bank) Oaks Pioneer Church as a site for events. are planned. It is predicted that the connectivity These effects could lead to an indirect provided by the proposed bicyclist and pedestrian negative impact to the Sellwood Moreland facilities will significantly increase the use of all Improvement League (SMILE), a community- recreational facilities in southwest and southeast based organization. SMILE relies on revenues Portland, particularly use of the bicyclist and from functions held at Oaks Pioneer Church pedestrian trails themselves. to carry out its programs and events, which • Despite the reduction in park acreage with benefit the community. The potential the Build alternatives, more people would use decrease in events is not expected to Powers Marine Park and Willamette Moorage jeopardize the long-term effectiveness of Park because the improved Willamette SMILE in serving as a local community Greenway Trail (West Bank), the streetcar advocacy group. service, and improved connection to the east side of the river would provide increased Environmental Justice visibility and improved accessibility. When it was annexed to the City of Portland in 1893, Sellwood was a working-class suburb, with • With the Build alternatives, these parks its residents primarily working in industrial would maintain their natural-area values even businesses. The popularity of the Sellwood though more people might use them because neighborhood has increased gradually over time. of potential streetcar service and improved Much of the housing stock has been renovated in bicyclist and pedestrian facilities. On the the last 30 years, which has increased the housing other hand, improved accessibility could be

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detrimental to these natural-area parks, and construction. River View Cemetery originally could increase the number of transients owned the land on the west end of the Sellwood camping in the parks. With Alternative D Bridge, from OR 43 to the Willamette River. OR Refined, the new multi-use trail between the 43 was built on land purchased from River View Sellwood Bridge and SW Miles Street Cemetery, and the remnant on the east side of (through Willamette Moorage Park) would the roadway was converted to a park (Powers improve bicyclist and pedestrian facilities, but Marine Park). This changed the setting of the could increase the number of people who cemetery and the Superintendent’s House. The would use Willamette Moorage Park and setting around Oaks Pioneer Church on the east Powers Marine Park. side of the river, near the end of the Sellwood Bridge, has also changed, because the church was • Ongoing restoration activities by the City of moved there from Milwaukie. Portland would improve the native plant community in Sellwood Riverfront Park, • The historic Sellwood Bridge would be lost Powers Marine Park, and Willamette with all the alternatives. With the No Build Moorage Park. These improvements would Alternative, the bridge would ultimately be benefit those visiting these parks or using the closed, deteriorate, and lose its historic value. Willamette Greenway Trail (West Bank). With the Build alternatives, the bridge would With Alternative D Refined, natural-area be either altered to the extent that it was no restoration and enhancement along Stephens longer eligible for the National Register of Creek in Willamette Moorage Park and along Historic Places (Alternatives A and B) or two streams in Powers Marine Park would replaced entirely (Alternatives C, D, E, and improve the natural area within these parks D Refined). and benefit park users. • Alternative E would degrade the long-term • The Sellwood neighborhood’s increasing setting around Oaks Pioneer Church. To a reputation as a recreational destination lesser extent, Alternative A could also would likely generate an increase in park degrade the long-term atmosphere around usage. Increased park usage could create a Oaks Pioneer Church if care were not taken shortage of parking at park locations, to integrate the bridge visually through especially at Sellwood Riverfront Park. landscaping within Oaks Pioneer Park. However, a better bicyclist and pedestrian connection from the bridge might encourage • The Build alternatives would be located more park users to bicycle or walk to the closer to the Superintendent’s House than park, rather than drive. with the existing conditions, therefore degrading the setting. With Alternative C, Archaeological and Historic removal of access from OR 43 could force Resources the existing business in the house to close, Five historic resources in the vicinity of the which could lead to a long-term degradation Sellwood Bridge are either listed (Oaks Pioneer of the resource. With the other Build Church) or eligible for listing (Sellwood Bridge, alternatives, the new access road would likely River View Cemetery, Superintendent’s House at allow for continuation of the business and River View Cemetery, and the Willamette lead to long-term maintenance of the Shoreline Trolley) on the National Register of resource. Historic Places. These resources have maintained • The conversion of River View Cemetery land their historic qualities, but the settings around to transportation use with all Build these resources have changed since their

3-240 Sellwood Bridge Project Final Environmental Impact Statement Cumulative Impacts Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation

alternatives would cumulatively add to land landslide may have added enough weight to that has been lost from the cemetery. (OR 43 modify the topography. was originally built on land purchased from the River View Cemetery, with the remnant • Construction of the project could provide on the east side of the roadway converted to long-term landslide stability through the a park.) addition of stabilization measures, which would reduce maintenance and benefit public • Shovel tests have been preformed to detect safety. the possible presence of both historic and prehistoric archaeological sites. The tests did • Incorporating proper seismic design as part not reveal the presence of sites. Therefore, it of the bridge rehabilitation or new bridge has been concluded that there would be no construction would provide better known archaeological cumulative impacts protection from earthquakes. Seismic other than what may have already occurred. standards have recently been increased so that the bridge design would be scaled to Visual Resources handle a 1,000-year seismic event. The Over time, construction of the existing Sellwood 1,000-year event is based on having only a Bridge in 1925 and other developments have 5 percent chance of occurring in the next 50 gradually changed the visual landscape of the years. Willamette River in the vicinity of the Sellwood • Constructing the rock cuts for Build Bridge. alternatives with stable slopes and • The rehabilitated or new bridge with the appropriate rock fall mitigation techniques Build alternatives would be a new visual would provide a safer environment for resource in the area, but it would replace the motorists. existing structure. A bicyclist/pedestrian Water Quality bridge with Alternative A would create an additional, new, permanent visual resource in Urbanized development within the lower the area. A temporary detour bridge with Willamette River watershed (between Alternative B would create a temporary Willamette Falls and the river’s confluence with visual resource in the area. the Columbia River) and the associated increase in impervious surface area have increased the • The retaining walls and rock cuts associated pollutant load of stormwater. The water quality with the Build alternatives on the west side level of the lower Willamette River is significantly would create more rock faces, but these degraded from its pre-settlement period. features could soften over time as vegetation Recently, federal and state regulations have matured. stemmed the degradation and are incrementally improving water quality. If the Tacoma Street area, and the properties near the east-side bridge-ending, redevelop in the • The Build alternatives would incrementally future, the visual resources would be somewhat contribute to improved lower Willamette modified. River water quality because stormwater treatment would be provided for more Geology stormwater than would be added by the Construction of the existing Sellwood Bridge may project. The No Build Alternative would have led to the instability of an ancient landslide maintain existing conditions and would not that exists at the west end of the bridge. The placement of fills and bridge piers on top of the

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incrementally improve lower Willamette the base flood elevation. These Build River water quality. alternatives would contribute to a cumulative impact that would alter the floodway by • The Build alternatives would cause an removing material from the floodway or by increase of dissolved copper and zinc into the redefining the boundary of the regulated Willamette River. Although the levels would floodway so that property not currently be below Oregon Department of within the floodway would be designated as Environmental Quality (DEQ) limits, they such. This floodway alteration could reduce would add to the quantity of dissolved metals other property owners’ abilities to develop in the river. New technologies are currently property. Further design work would be under development and would likely be undertaken on the Build alternative that is available by the time of project construction. selected to determine whether the piers These technologies could greatly improve could be altered to avoid the impact. dissolved metals removal, incrementally improving lower Willamette River water • With all alternatives, future development quality. within the lower Willamette River floodplain could contribute to a small increase in the • The City of Portland is currently constructing base flood elevation. However, these projects the Combined Sewer Overflow (CSO) would be required to comply with local project, which will divert stormwater from floodplain regulations to avoid or mitigate flowing into the Willamette River, therefore floodplain impacts. improving water quality in the Willamette River in Portland. Other transportation Aquatic Resources projects and large developments within the More urbanized development within the lower lower Willamette River watershed would Willamette River watershed, along with result in additional impervious surfaces. channelization of the river and its tributaries, However, these projects would be required have incrementally decreased the aquatic habitat to provide water quality mitigation, such as area along the Willamette River and its new or rehabilitated stormwater facilities. tributaries. Several fish species are Endangered Overall, this would incrementally improve Species Act (ESA)-listed as threatened. In water quality in the lower Willamette River addition, the lower Willamette River between its watershed. confluence with the Columbia River and Willamette Falls is identified as critical habitat for Hydraulics listed salmonid species, and is proposed as critical Increased stormwater runoff from new habitat for the Southern Distinct Population impervious surfaces within the lower Willamette Segment (DPS) of North American green River watershed and new structures within the sturgeon. While the main concerns are pollutants Willamette River floodway has changed the in the water and issues related to stormwater historical and pre-development floodway and runoff, the steady reduction of riparian habitat floodplain boundaries. In addition, upstream dams along the lower Willamette River has contributed and urbanization along the Willamette River have to degradation of the aquatic habitat. The City of reduced the tendency of the Willamette River to Portland has begun restoration of aquatic habitat flood. within the lower Willamette River watershed, • Alternatives A, B, C, E, and D Refined, as including on the west side of the Willamette evaluated during the preliminary design River between OR 43 and the Willamette River phase, would contribute to a small increase in near the existing Sellwood Bridge.

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• Proposed mitigation and ongoing habitat Alternative D Refined would improve restoration activities by the City of Portland vegetation in the Stephens Creek area and would improve aquatic resource habitat in along two unnamed streams within Powers the Stephens Creek area and at off-site Marine Park. mitigation areas. • The project would permanently remove • The Build alternatives would result in impacts between 0.5 and 0.7 acre of Westside to a very small additional increment of Riparian habitat. Approximately 150 acres of riparian area. With the Build alternatives, riparian habitat would remain on the lower treatment of stormwater in the project area Willamette River between Willamette Falls would be improved, even though the volume and its confluence with the Columbia River. would be incrementally increased. A net While the impact would be relatively small, improvement in the quality of water riparian habitat is important to the health of delivered into the Willamette River is the river, and even small increments of lost expected with the Build alternatives. With riparian habitat would add up to permanent Alternative D Refined, natural area degradation. restoration and enhancement along Stephens • Temporarily disturbed existing vegetation Creek in Willamette Moorage Park and along within the right-of-way would be revegetated two streams in Powers Marine Park would where feasible or would be mitigated by improve aquatic habitat along the Willamette restoration or enhancement at another River in the lower Willamette River location. Disturbed vegetation would mature watershed. to improve wildlife habitat and cover some • In-stream habitat could be affected by future retaining walls. development or redevelopment. However, • Existing vegetation restoration and impacts would be mitigated on-site or at off- enhancement activities by the City of site mitigation areas. Portland on the west side would improve the Vegetation natural areas and overall wildlife habitat. Urbanization has incrementally reduced Benefits would result from the removal of vegetation along the Willamette River within the non-native plant species (such as Himalayan lower Willamette River watershed (between blackberry and Japanese knotweed) and Willamette Falls and the confluence of the river replacement with native species. with the Columbia River) by fragmenting and Wetlands decreasing the quantity and quality of vegetated More urbanized development near the river and areas. The City of Portland has been conducting within the lower Willamette River watershed, as ongoing vegetation restoration and enhancement well as channelization of the river from industrial projects throughout the city, including a program land uses and dam construction in the Willamette to restore native vegetation on the west side Falls area, have incrementally decreased the between OR 43 and the river near the existing wetland area along the Willamette River in the Sellwood Bridge. lower Willamette River watershed. However, the • The Build alternatives would permanently City of Portland has enhanced or restored remove large native trees and shrubs and historic wetland areas within the lower some riparian vegetation, and would Willamette River watershed (such as within permanently reduce the natural area on the Powers Marine Park, Willamette Moorage Park, west side. However, mitigation with Ross Island, Oaks Bottom, and the South

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Waterfront District) and has plans for further temporarily reducing the quality of habitat, wetland restoration along the Willamette River. within the project right-of-way. Connectivity on the west side between River View • Unavoidably disturbed wetlands (0.1 acre) Cemetery and the Willamette River would be with Alternatives A, B, C, D, and E would be slightly improved because the project would restored in place or mitigated by restoration create a very-low-volume access road under or enhancement at another location, such as OR 43. It is likely that wildlife would use this the Stephens Creek, Oaks Bottom, or South access road, particularly at night, thus Waterfront areas. There would be no net avoiding attempts to cross OR 43. The loss in wetland area in the lower Willamette creation of a wildlife-friendly passage of the River watershed. crossing of Stephens Creek would slightly • The preferred alternative (Alternative D improve connectivity within park areas. The Refined) would not impact any wetlands. wildlife species found in the project area, however, are common species, generously Wildlife distributed throughout the urban area. The construction of transportation facilities on • Ongoing restoration activities by the City of the west side of the Willamette River has Portland at Stephens Creek and Willamette incrementally reduced wildlife habitat by Moorage Park and mitigation in the study fragmenting and decreasing the quantity and area or off-site mitigation areas would quality of wildlife habitat. During the pre- improve wildlife habitat, particularly fish settlement period, this area probably supported habitat. an abundance of wildlife, including bear and game animals. This area, which has been urbanized for Noise over 100 years, now typically supports wildlife Increased traffic on OR 43 and the Sellwood that is adapted to urban habitats. Although the Bridge has incrementally contributed to area has been urbanized, the habitats located increasing noise levels. Historic noise levels are within the surrounding natural-area parks support not known. However, it is safe to assume that abundant wildlife, including raccoon, opossum, mill activities created a certain noise environment river otter, beaver, and small rodents. Over on the east side of the project area. The 200 species of birds have been recorded within presence of train tracks also indicates an 2 miles of the project area, most within the parks environment that was fairly noisy. As the mill was fringing the river. The City of Portland has replaced by commercial businesses and rail use started a program to restore wildlife habitat on diminished, the primary source of noise became the west side between OR 43 and the river. vehicle traffic on the bridge. Starting when the • The Build alternatives would further reduce bridge was built in 1925, traffic on the bridge has and fragment the remaining wildlife habitats steadily increased. As evidenced by fairly new and corridors in the study area. However, condominiums built under the bridge itself, the removal of non-native species and planting of current noise levels are not sufficient to native species would improve the habitat that discourage development and use of the would remain. immediate area. It is expected that future noise generated would be the same with either the • The wider right-of-way, infrastructure, and Build alternatives or the No Build Alternative retaining walls of the Build alternatives would because the traffic is expected to be similar with adversely impact wildlife by permanently all the alternatives. However, the configuration of reducing the quantity of habitat, and by the bridge (primarily the deck width) and the

3-244 Sellwood Bridge Project Final Environmental Impact Statement Cumulative Impacts Chapter 3. Existing Environment, Anticipated Impacts, and Mitigation alignment of the bridge affect which properties • Volume projections for future-year traffic are impacted. Therefore, the cumulative noise incorporated traffic related to other effect would vary slightly based on the alternative. reasonably foreseeable actions. As a result, Alternative E would create the greatest shifts in the impacts identified as direct impacts noise impacts. None of the alternatives would included expected cumulative impacts. No significantly increase the level of noise in the significant additional cumulative energy project area. Nor would the alternatives be impacts would be expected. expected to significantly increase noise levels in the future. Volume of traffic, speed of traffic, mix • The Build alternatives would substantially of traffic, distance from traffic, and pavement improve the opportunity for multi-modal types affect noise levels. Because the capacity of travel by improving bicyclist and pedestrian the road network in the area is very limited, facilities across the river, improving bicyclist traffic increases would not contribute enough and pedestrian connections from the bridge growth to substantially increase noise levels. In on each side of the river, and reinstating addition, as traffic volumes increased, speeds transit service on the bridge. These modes would decrease, offsetting the noise-related are more fuel efficient than auto travel. impact of the traffic growth that would occur. Therefore, all Build alternatives would The other issues mentioned previously would support strategies for reducing energy contribute little, or perhaps not at all, to the consumption. increase in noise levels. Probably the greatest • The energy model used to project energy potential to increase the number of noise- usage does not address alternative fuel usage, impacted residences is the likelihood that more innovations in vehicle fuel efficiency, or policy residences will be constructed in the trends designed to reduce vehicle miles noise-impacted area. traveled. • Increased traffic would contribute a small Air Quality increment of additional noise in the study Gradually increasing traffic volumes over the last area. The noise impacts of the Build 80 years on OR 43 and the Sellwood Bridge have alternatives in 2035 would constitute a just- incrementally contributed to increased vehicular perceivable increase in noise levels over the emissions of pollutants and greenhouse gases in existing conditions, representing a small the study area. Since the advent of the Clean Air incremental contribution to the overall noise Act, air quality standards regulating auto levels. emissions have decreased regulated pollutants in Energy the Portland metropolitan area. Greenhouse gas Increased traffic on OR 43 and the Sellwood emissions continue to increase in the Portland Bridge has incrementally contributed to increased metropolitan area, however, primarily because of transportation-related energy consumption in the the growth in traffic volume. Portland metropolitan area. Vehicles have • Total vehicular emissions of pollutants has become more fuel-efficient. However, further declined and is expected to continue to reductions in transportation-related energy decline because of new technology; phasing consumption on the Sellwood Bridge would be out of older, more polluting vehicles; and limited because transit has been restricted on the increased emphasis on low carbon fuels, current bridge and the bicyclist and pedestrian vehicle fuel efficiency, and policies to reduce facilities on the current bridge are inadequate. greenhouse gas emissions.

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• Climate change is an increasing local, regional, materials and finished products. These historic national, and global concern. As described in and existing land uses have contributed to Section 3.1 (Transportation), 2035 traffic contaminated sites and potential hazards. Hazards demands in the study area are estimated to associated with various businesses have been be similar with the No Build Alternative and identified in the Sellwood Bridge area. The area is with each of the Build alternatives. This is in transition away from light industrial uses because none of the Build alternatives would toward residential, service, and office-space uses. increase vehicle-traffic-carrying capacity along Most of the newer land uses do not present a OR 43 beyond the immediate area of the high risk of creating contamination. In general, bridge or along SE Tacoma Street east of the contaminated sites are being cleaned up and new bridge. Peak-hour vehicle miles traveled on hazards are not being created. Therefore, the roadways with each of the Build alternatives long-term outlook is for a less contaminated would be similar to those of the No Build environment in the Sellwood Bridge area. Alternative. As described in Section 3.21.2, • Contaminated sites and potential hazards greenhouse gas emissions would be the same have been identified. The businesses and among all Build alternatives, and likely less individuals at these sites have curtailed their than with the No Build Alternative, because polluting activities, and the sites are being the Build alternatives would encourage travel cleaned up. With the Build alternatives, if modes that would emit fewer greenhouse identified contaminated sites were acquired gases per capita. (The Build alternatives as right-of-way, cleanup activities would would provide new bicyclist and pedestrian continue. facilities, reinstate transit service across the bridge, and be designed to accommodate a • Accidental polluting spills could occur. future streetcar line.). Because best management practices govern Regional growth in population will increase hazardous materials associated with traffic and congestion in the Sellwood Bridge construction activities, it is not likely that corridor. By 2035, a 33 percent increase in construction would cause pollution. travel demand is expected in the corridor for • By reinstating truck traffic across the bridge, both the No Build Alternative and the Build a truck carrying hazardous materials could be alternatives. However, in the future, the source of a hazardous-material spill. expected environmental improvements to However, the Build alternatives would automotive and fuel technologies will tend to improve both roadway design and safety; decrease greenhouse gas emissions. In therefore, the accident potential would be addition, reinstating transit service across the low. The Build alternatives could be designed bridge and improving bicyclist and pedestrian to ensure that any hazardous material spills facilities and connections would promote and would be prevented from entering the river. encourage travel modes that have fewer or no greenhouse gas emissions compared to automobile travel.

Hazardous Materials Industrial land uses were historically located in the Sellwood area between SE 6th Avenue and the Willamette River because of its reliance on the river and then rail lines for transport of raw

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