CHAPTER 1 Background 1.1 Transportation Facility Plan Purpose This report documents the results of the transportation facility planning process conducted by the Oregon Department of Transportation (ODOT) for the intersection of Oregon Route 22 and Oregon Route 99W at Rickreall. The Oregon 22/Dallas-Rickreall Highway intersection was also included in the facility planning process. As the facility process progressed and various alternatives were reviewed, potential impacts to the unincorporated community of Rickreall and the Oregon 99W/Rickreall Road intersection were also assessed. The Oregon 22 and Oregon 99W corridors and the project study area are shown in Figure 1.1.1 Facility plans can serve a variety of purposes. In some cases, a facility plan is developed to address an outstanding planning issue or narrow the alternatives that are then advanced into the environmental documentation process required by the National Environmental Policy Act (NEPA). In other cases, a facility plan process may also constitute the first phase of the formal NEPA or non-NEPA project development process. The purpose of the Rickreall Junction Facility Plan was to assess traffic and safety problems within the study area and identify potential solutions to these problems. This effort was a technical exercise to evaluate and screen alternatives prior to conducting project development. The operational feasibility of alternative solutions to identified problems through the year 2025 was the original focus of this effort. However, with the approval of construction funding for this project through the Oregon Transportation Investment Act (OTIA) in late 2001, this facility plan was expanded to include an Interchange Area Management Plan (IAMP) as required by Oregon Administrative Rule (OAR) 734-0051-0200. The conclusions in this document have provided direction to the project development process by defining the key features of the alternative that has been chosen for construction. This report also provides a basis for the ODOT to work with Polk County to amend its Comprehensive Plan, Transportation Systems Plan (TSP) and Zoning Ordinance. These amendments will acknowledge the project development decisions that have been made and the short- and long-term facility management approach (including Polk County land use decisions) that will be implemented to help protect the function of these improvements through the 20-year planning horizon. This project recommendation made by this facility plan defines the alternative that is now included in the State Transportation Improvement Program (STIP) as a result of the OTIA process. However, the Oregon Transportation Commission (OTC) made the OTIA approval with several conditions prior to granting construction approval. These conditions are addressed by this facility plan. 1-1 1.2 Facility Plan Context The Oregon Transportation Plan (OTP) sets broad policies for the state transportation system. Included are policies and action steps intended to improve rural highways. Overall, the intent of the OTP is to guide future development and ensure a safe, convenient, and efficient transportation system throughout the state in order to promote economic prosperity and livability for all Oregonians. The Oregon Highway Plan (OHP) designates Oregon 22 as having a Statewide Level of Importance (LOI). Oregon 22 has also been designated by the OTC as an expressway and is included as part of the National Highway System. Expressways are a subset of Statewide, Regional, and District LOI highways that are intended to provide a high level of mobility for longer distance travelers. The OHP designates Oregon 99W as having a Regional LOI. Based on LOI designations, the OHP defines specific standards for state highways, including mobility standards, interchange spacing requirements, investment priorities, and access control standards. The operational performance and mobility standards in the OHP can vary by location and adjacent land use type. ODOT corridor-level plans and local Transportation Systems Plans (TSP) define the existing conditions and future improvements necessary to support land use plans 20 years into the future and implement the OHP and other ODOT modal plans. ODOT’s Oregon 22 Corridor Strategy (West) identified the Oregon 22 and Oregon 99W and Oregon 22 and Dallas-Rickreall Highway intersections as areas that needed further solution development work. This corridor strategy covered the portion of Oregon 22 from its intersection with Oregon 18 at Willamina to the Deer Park/Gaffen Road Interchange approximately four miles east of Interstate 5. These recommendations were further supported by a corridor safety analysis performed in 1999. The Polk County TSP identifies both Oregon 22 and Oregon 99W as principal arterials in the County road system. It identifies a number of possible road construction projects including the construction of an interchange at the Oregon 22/Oregon 99W intersection. The TSP states that the county will work with ODOT on any necessary studies related to these projects. This facility plan is ODOT’s first step in the project development process needed to meet the OTIA objectives. Where this facility plan fits within the ODOT’s hierarchy of planning, programming, and project development processes is shown in Figure 1.2.1. 1-2 INSERT FIGURE 1.1.1—Map in a map showing project study area and corridors 1-3 1-4 Oregon Transportation Plan Mode/Topic Plans MPO Plans City/County Transportation System Plans Facility Plans (including refinement, corridor, interchange management, and other plans) Statewide Transportation Improvement Program Solution Delivery Environmental Document Project Development - Right-of-way (ROW) - Final Design Construction FIGURE 1.2.1 - ODOT Planning, Programming, and Project Development Context 1-5 1.3 Facility Plan Process This facility plan process consisted of the following phases: Technical Advisory Committee Formation - A Technical Advisory Committee (TAC) was formed to develop the facility plan. The TAC consisted of federal, state, and local representatives including Federal Highway Administration (FHWA) staff, ODOT staff, Department of Land Conservation and Development (DLCD) staff, MWVCOG staff, and representatives from Polk County and the City of Dallas. The TAC was responsible for developing project goals and problem statement, data collection and analysis, alternative identification and evaluation, and recommendations. The TAC meeting summaries are included as Appendix A. Scoping and Inventory - The TAC conducted a review of all existing plans, policies, and study documentation related to the existing intersection to identify pertinent policies and determine data collection needs. Conditions Assessment - The TAC conducted analysis and validation of existing operating and geometric conditions; development of future traffic volumes; and analysis of operating conditions assuming the existing geometric conditions remain in place. From these assessments, deficiencies are identified. Alternative Identification - The TAC identified a range of improvement alternatives and conducted screening to select the most feasible alternatives for evaluation. Alternative Evaluation - The TAC evaluated the operational performance and geometric feasibility of the selected alternatives using the traffic volumes for the years 2015 and 2025. Stakeholder Input - The project team conducted a series of meetings with key stakeholders. These included Rickreall community residents and local business owners, officials from Dallas, Monmouth, and Independence, local legislators, Dallas School District personnel, and emergency response personnel. The purpose of the meetings was to review preliminary evaluation results and improvement concepts and receive stakeholder feedback. The stakeholder outreach process culminated with an open house at the Polk County Fairgrounds in June 2002. The acceptability of the project concept recommended by this facility plan was affirmed at this open house. Additional public input can also be provided through the Polk County and OTC adoption processes. Facility Plan Preparation - The project team prepared the facility plan including documenting the previous steps, investment requirements, and recommendations for adoption. Figure 1.3.1 illustrates the facility plan process. 1-6 Scoping & Inventory Alternative Rickreall Junction Recommendations Facility Plan Condition Assessment Polk County Stakeholder Adoption Input Which alternatives Alternative best address Identification the identified YES problems? OTC Adoption Alternative Evaluation Project Development Is alternative feasible? Alternative Dismissed NO Figure 1.3.1 - Facility Plan Process Flowchart 1-7 1.4 Transportation Context 1.4.1 Oregon 22 Characteristics and History The Oregon 22 transportation corridor extends for approximately 140 miles, beginning at the intersection with US Highway 101 in Hebo and terminating at Santiam Junction where it intersects with Oregon 20. Between Salem and Willamina, the corridor primarily runs through farmland with little development occurring outside of Salem. Oregon 22 is of critical importance to a wide range of statewide, regional, and local users and is designated as a highway of statewide importance from Valley Junction to Santiam Junction. The highway serves as the primary route connecting the Salem-Keizer Metropolitan Area and the mid-Willamette Valley to the Oregon Coast, providing connections to Lincoln City and Tillamook. It is also a major connecting route from the