REGIONAL TRANSPORTATION PLAN FOR THE

TRI‐CITIES METROPOLITAN AREA

AND THE BENTON, FRANKLIN, WALLA WALLA

REGIONAL TRANSPORTATION

PLANNING ORGANIZATION

2011‐2032

Adopted November 2011, Revised May 2012 2011-2032 Regional Transportation Plan

PREFACE

The Benton-Franklin Council of Governments (BFCG) serves as the lead agency for both the Tri-Cities Metropolitan Planning Organization (MPO) and the Benton-Franklin-Walla Walla Regional Transportation Planning Organization (RTPO). In accordance with state and federal transportation planning requirements, the BFCG has coordinated with area jurisdictions in the development of this combined Regional and Metropolitan Transportation Plan.

The intents of this long-range transportation plan are to establish the vision for the region and provide the means to attain that vision. It identifies the issues and concerns associated with the transportation system in the region, as well as the policies and specific programs intended to address those concerns. The plan provides an inventory of the current system as well as providing metropolitan area forecasts for population, employment, and traffic to be anticipated during the life of the plan.

Development of the 2011-2032 Metropolitan & Regional Transportation Plan required the efforts of local area planners and engineering staff from each of the BFCG’s member agencies. In addition, elected officials from each agency aided in formulating the policies contained in the plan and the review of its’ content. BFCG staff was integral in providing the layout of the plan, the coordination of interacting with the many members, as well as the collection of information and efforts described within the plan. Without the collective effort of all involved, successful formulation of the plan would not be possible.

The 2011-2032 Metropolitan &Regional Transportation Plan (RTP) replaces the 2006-2025 RTP. This combined urban/rural document eliminates duplication; provides a comprehensive vision for the entire region; and meets both the state planning requirements of the Growth Management Act (GMA) and the federal requirements of the Safe, Accountable, Flexible, Efficient Transportation Equity Act: A Legacy for Users (SAFETEA-LU).

Over the coming years this plan will be updated to reflect policy changes, technological advances, funding options, and other “course corrections.” This document is intended to be a dynamic guide to achieving the regional vision.

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EXECUTIVE SUMMARY

THE PLAN

This Metropolitan and Regional Transportation Plan (RTP) is a compilation of coordinated city, county, and state planning efforts for the Tri-Cities Urban Area (MPO) and the Benton- Franklin-Walla Walla Counties region (RTPO). The plan is in accord with state and federal guidelines and requirements.

The plan is based on least cost planning methodologies to attain the most cost-effective facilities, services, and programs that function as an integrated multi-modal regional transportation system; ensures preservation of that system; and makes efficient use of facilities to relieve congestion and maximize mobility of people and goods.

The plan presents regional level of service standards; evaluates the operational level of service of regional facilities for current conditions and for ten and twenty year horizons; assesses current and future capacity deficiencies; presents short, medium, and long-range transportation projects of each regional jurisdiction; presents a financial plan demonstrating how the transportation plan will be implemented; and includes goals, policies, and action strategies to guide the planning process for the next twenty years.

The plan establishes consistency with the jurisdictional six-year Transportation Improvement Programs (TIPs) and the MPO/RTPO TIP; the transit development programs of Ben Franklin Transit and Valley Transit; the land use and transportation elements of city and county comprehensive plans; and the Washington Transportation Plan.

BACKGROUND

The RTP was developed through a cooperative process that involved the BFCG, WSDOT, the public, and the efforts of the three counties, 13 cities, four ports, and two transit agencies that constitute the MPO/RTPO of the region.

The analysis for the Tri-Cities Urban Area and periphery utilized a computer traffic model to forecast future traffic volumes and levels of service. The Tri-Cities model area includes the Tri-Cities urbanized area and some adjacent areas in Benton, Franklin, and Walla Walla counties, including travel to and from the Hanford Reservation. Those future travel demand estimates were direct results of forecasts of changes in the level of urban development. One of the most important aspects of the urban transportation planning process is the forecasting of future development in terms of population and employment.

Total population within the Tri-City model area during 2010 was nearly 214,000. By 2020, the area is forecast to grow by 48,565 people for a total population over 263,500. During the second decade, the addition of nearly 48,000 is forecast to bring the 2030 total population to 310,504 people within the model area. This equates to model area increase of 96,527 over the twenty-year period, or an annual increase of 2.3 percent.

Employment and forecasted employment is stated by number of employees for most land use categories. There are, however, some categories that are measure in other means – such as schools being reflected by the number of students, or hotels being measured by the number ii Benton-Franklin Council of Governments

2011-2032 Regional Transportation Plan of rooms for example. For the purposes of discussion, employment values within this section refer only to those categories measured by employee.

Within the model area in 2010, total employees were estimated at 69,271. Forecasted employment for 2020, show an increase of 6,249 employees bringing the area total to 75,520. By the year 2030, an additional 11,675 employees were forecast to be employed within the area resulting in a total of 87,195. Employment forecasts are reflective of the anticipated downturn in total employment associated with the Hanford cleanup mission. In total, employment forecasts show an increase of nearly 18,000 employees or an annual growth rate of 1.3 percent for the twenty-year period.

MAJOR REGIONAL ISSUES

Regional transportation issues that were identified by the local transportation committees when developing the plan were:

Preservation and Maintenance. Smaller jurisdictions have difficulty transferring general revenues to street maintenance when those funds are severely needed. Additionally, much of the available grant funding is restricted to federally classified routes, leaving local road maintenance underfunded. Long-term maintenance deferral leads to system deterioration.

Safety Deficiencies. Physical deficiencies or items that do not meet current engineering standards may include horizontal and vertical alignments, intersections, stopping sight distance, inadequate or nonexistent shoulders, narrow lanes, roadside hazards, lack of protective guardrails, narrow bridges, and warning devices at railroad crossings. Obtaining funds to implement remedial measures is an on-going problem.

Automobile Dependence. Both the volumes of traffic on our streets and highways and the vehicle miles traveled by individual vehicles are increasing. Funding capacity improvements to keep pace with the demand is an on-going challenge.

The Hanford Site work commute changed when the Department of Energy eliminated their bus fleet and allowed private vehicles on the site. A BFCG survey performed every other year finds the daily Hanford-bound commute through Richland consisting of approximately 88 percent single-occupancy and 10 -12 percent carpool and vanpool. The nuclear waste treatment plant currently under construction is adding another 1,000-2,000 workers (numbers fluctuate) into the Hanford commute.

The morning commute to Hanford on SR 240 operates well within the capacity of this corridor due to staggered and variable work shifts. However, the afternoon return commute is more compressed, resulting in significantly more congestion and delays.

Ben Franklin Transit’s vanpool program helps ease the Hanford corridor congestion.

The Tri-Cities area was again granted a two year exemption (effective June 30th 2011) from implementing a state mandated Commute Trip Reduction Program that will affect major employers, including the Department of Energy and their prime Hanford contractors.

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Inter-City Bus Service. In 2004, Greyhound discontinued service to Connell, Prosser, Richland and Walla Walla. With WSDOT support, the “Grape Line” bus service has attempted to fill part of that void between Pasco and Walla Walla.

Stampede Pass Rail Impacts. Reopening the Stampede Pass rail line has resulted in traffic impacts in Pasco, Kennewick, Prosser, and other communities up the Yakima Valley. Grade separations have been constructed at the Interstate 82 Kiona Interchange (Exit 96), Ainsworth Avenue (SR 397) in Pasco and Columbia Center in Kennewick. In 2011 BNSF is scheduled to begin bridge construction for a grade separated crossing of Steptoe Street as part of a joint Kennewick/Richland project extending Steptoe Street between Clearwater Avenue and Gage Boulevard. Additional work is needed.

Snake River Draw Down/Dam Breaching. The impacts to road and rail transportation associated with the potential loss of barge traffic on the Snake River are extensive. There is no mechanism in place to finance the capacity improvements that would be needed to continue those freight commodity movements. The BFCG Board has gone on record (resolution) opposing any dam breaching or pool draw downs.

Columbia and Snake River Dredging. The Columbia River Channel Improvements Project was a collaborative effort between the U.S. Army Corps of Engineers and six lower Columbia River ports to improve navigation by deepening the navigation channel to accommodate the current fleet of international bulk cargo and container ships. The Corps completed the last section of the Project in November 2010, finishing an effort that took more than 20 years to complete. The project deepened the Columbia River by three feet, to 43 feet along a 103-mile stretch of river from the Pacific Ocean to Portland, Oregon. Additionally, following favorable court action, the Corps of Engineers completed the necessary dredging on the Snake River in the winter of 2005-2006. Siltation is again expected to necessitate dredging in 5-7 years.

Seasonal Weight Restrictions. Seasonal weight restrictions during freeze/thaw cycles of late winter and early spring affect 85 percent of the regional rural county freight and goods routes. This impacts delivery of farm commodities from scattered rural storage facilities to railheads and water ports. The process of all-weather surfacing these vital freight routes is moving slowly for lack of adequate funds.

Preservation of Light Density Rail Lines. Four light density, or branch lines, operate in the RTPO. Branch line operations provide competitive alternatives to shipping by barge or truck as well as reducing traffic congestion and maintenance requirements on state and local roads. Branch lines tend to operate on slim profit margins, resulting in deferred maintenance and potential abandonment. State financial support and a grain car program have helped to keep them running. Continued support will likely be needed to preserve these freight options.

Decline of Dedicated Transportation Funds. The 1999 repeal of the State Motor Vehicle Excise Tax was followed by two subsequent state gasoline tax increases. One of those increases marginally addressed funds for cities and counties, extending city and county transportation program needs.

The growth in the state’s population, number of licensed vehicles, and vehicle miles traveled indicate the need for appropriate increases in transportation funding for cities and counties to offset increased maintenance costs, pavement overlays and capacity improvement needs. The Washington Transportation Plan further emphasizes those needs. iv Benton-Franklin Council of Governments

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GOALS AND POLICIES

Regional transportation goals and policies were developed by the Transportation Technical Advisory Committee and Policy Advisory Committee, public input, and the BFCG to guide jurisdictional actions related to transportation planning. As an integral part of the adopted plan, the goals and policies should be reviewed on an ongoing basis for currency and consistency. Agencies may choose to adopt some or all of the policy statements as part of their local transportation or land use planning processes. The policies include:

1. Access 11. Pedestrians and Bicycles 2. Efficiency 12. Transit Element 3. Balance 13. Transportation Demand Management/ 4. Safety & Security Commute Trip Reduction 5. Safety Conscious Planning 14. Streets and Highways 6. Environmental Responsibility 15. Air/Waterways/Rail 7. Transportation Financing 16. Freight Movement 8. Intergovernmental Cooperation 17. Intermodalism 9. Citizen Involvement and Public 18. Transportation and Economic Education 19. Maintenance and Preservation 10. Livability, Sustainability, & Land Use

TRI-CITIES DEFICIENCY ANALYSIS (MPO)

City of Richland – Current congestion exists upon George Washington Way’s (GWW) southern portion, with numerous delays experienced at signalized intersections with local cross- streets. SR 240 eastbound, between Route 10 and Stevens Drive, operates under congestion during the PM commute, while the SR 240 southbound “Bypass” traffic experiences delays at the six signalized intersections within this section. SR 240 eastbound ramp to I-182 westbound (toward Queensgate Drive) experiences congestion associated with the higher volumes and required weave movements accessing the westbound ramps.

Forecasts for the year 2020 show conditions along GWW will worsen with congested segments appearing further north. The I-182/GWW interchange will become increasingly busy, with some movements likely near capacity. SR 240 eastbound between Kingsgate Way and Stevens Drive is forecast to operate as congested. The Duportail Bridge and associated Duportail Extension (to Stevens Drive) will draw significant traffic volumes and improve conditions at both Aaron Drive and Queensgate Drive. With that said, the SR 240 eastbound ramp to I-182 eastbound will remain a location of concern.

2030 forecasts show the extension of Jones Road, coupled with anticipated reduction of employment in further reaches of the Hanford Site, will reduce congestion upon SR 240 eastbound between Kingsgate Way and Stevens Drive. However, conditions along the SR 240 Bypass are expected to worsen between SR 224 (Van Giesen Street) and Duportail Street in the southbound direction. Conditions along GWW southbound are forecast to be congested entirely when south of Lee Boulevard, with increasing congestion at the I-182/SR 240 interchanges at Aaron and GWW. Queensgate Avenue is forecast to operate as congested in the vicinity of the I-182 interchange while roundabouts at Columbia Park Trail and Tapteal Drive are forecast to operate near, or above, capacity by 2030. Gage Boulevard is forecast to operate with some segments congested and others at, or near, capacity.

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City of West Richland – Currently there are no major deficiencies apparent within the city, however forecasts for the years 2020 and 2030 indicate SR 224 westbound will approach capacity in some locations. The extension of Keene Road to Twin Bridges Road is expected to provide an attractive alternative for Hanford commuters who have traditionally used the SR 240 Bypass. Further connection to I-82 with the Red Mountain Interchange will provide much easier access into and out of the city from points west and south of the area.

City of Kennewick – Currently, congestion exists upon portions of Gage Boulevard, primarily in the eastbound direction. US 395 travelers experience numerous delays at the signalized intersections with local streets. Clearwater Avenue also experiences significant delay in both directions due to the numerous signalized intersections present on the corridor. The US 395 “Blue” Bridge (southbound) is near congested levels, with improvements at the US 395/SR 240 interchange appearing to handle current volumes well.

Forecasts for the year 2020 show conditions forecast to improve along Gage Boulevard, with the Steptoe Street Corridor extended to Southridge sub-area, though portions of Gage Boulevard will continue to operate at levels near congestion. Improvements adjacent US 395 in the Southridge area will draw large volumes to the newly developed area, with model forecasts showing both 27th Avenue and Hildebrand Road as congested at points east of US 395. SR 240 eastbound between Columbia Center Boulevard and Edison Street is forecast to near congested levels. The US 395 “Blue” Bridge southbound is forecast to be at congested levels with the northbound approach also forecast as congested. SR 397, south of 10th Avenue is forecast to operate at congested levels, though largely a factor of its lower classification capacity.

By the year 2030, Gage Boulevard is forecast to be congested in both directions (adjacent Steptoe). SR 240 eastbound, between Columbia Center Boulevard and Edison Street, will continue to operate near congested levels. Hildebrand Road and 27th Avenue (east of US 395) are forecast to operate at congested levels. Portions of US 395 southbound are nearing congested levels with the US 395 “Blue” Bridge forecast to be above levels of congestion in both directions by the year 2030. Conditions along SR 397 (south of 10th Avenue) are forecast with congestion with congestion reaching further southeast than seen in 2020 forecast.

Benton County (Urban) – Current conditions show congested levels upon SR 240 eastbound between Route 10 and Twin Bridges Road. Other areas on the urban fringe appear to operate at comfortable levels at this time, though there are some spot operational concerns at specific locations.

Forecasts for 2020 indicate the SR 240 eastbound segment identified as congested today will experience lighter volumes if Hanford employment reductions occur as anticipated. Portions of SR 397 in the Finley area are expected to approach congested levels by 2020.

The 2030 model forecasts show that the Red Mountain Interchange will be an attractive route for some north-south commutes in the area. By 2030, segments of SR 224 could approach congested levels without sufficient improvement to accompany the interchange project. Development of the Badger sub-area in Richland is forecast to lead to some congestion along Reata Road near Leslie. Forecasted congestion will spread southward along SR 397 in the Finley area, primarily in the southbound direction.

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City of Pasco – Currently, congestion exists in the I-182/Road 100 vicinity and also the I- 182/Road 68 area. Congestion is primarily upon Broadmoor Parkway, Road 68, and Burden Boulevard as travelers negotiate the signals and ramp movements in these areas. The US 395 segment between Kartchner Street and Court Street experiences some congestion as numerous ramp movements and weaves are present in this portion.

By the year 2020, forecasts indicate the I-182 (“Richland-Pasco”) Bridge will near levels of congestion. Ramps to and from Road 100 are expected to be congested as is Broadmoor, north of I-182. Conditions at Road 68/Burden Boulevard are forecast to be congested in north, south, and east directions. US 395 southbound ramps from US 395 (from Spokane Street) and loop ramp to Blue Bridge are both forecast to operate at congested levels by this time.

In the 2030 forecast, volumes upon the I-182 Bridge (eastbound) are forecast to grow beyond the volumes of any other roadway in the urban area – and operate at levels of congestion. Improvements are planned for the Road 100 interchange, but those associated ramp improvements are forecast to be at congested levels by 2030. Interchange projects at Road 52 and an Underpass at Road 76 result in better conditions at Road 68/I-182. The forecasts for US 395 (southbound) continue to show levels of congestion between Kartchner and Court Streets. In the 2030 forecasts, congested levels are found on US 395 southbound ramps with mainline volumes nearing congested levels.

Franklin County (Urban) – The model area roadways for Franklin County operate at comfortable levels at this time with only operational concerns at spot locations. Forecasts include few Franklin County roadway improvements on the urban fringe. Of those, only the extension of Road 100 (Broadmoor) is forecast to operate near a congested level. This is most likely a factor of the lower capacity associated with rural road segments. The intersection of Columbia River Road/Taylor Flats Road/Dent Road/Clark Road will experience a significant amount of traffic by 2030 and these volumes should be kept in mind when design of the planned improvements is begun.

Urban Area Summary – For the most part, forecasted congestion is upon segments that area professionals would intuitively expect. Area staff seem to have a good understanding of the needs and expected areas of future growth. The project lists contained within both 2020 and 2030 “Build” scenarios do help alleviate the congested conditions forecasts for most areas. It is evident, however, that not all congestion problems can be solved through the limited resources available at the local level. The SR 240, I-182, and US 395 corridors and their interactions with the local road systems will continue to be an area of required focus as locals struggle gaining access to and across the state facilities. Additionally, and perhaps of greater concern, is the congested levels of traffic forecast for the Tri-City area’s two highest capacity bridges, the I-182 “Pasco-Richland” Bridge and the US 395 “Blue Bridge”.

REGIONAL DEFICIENCY ANALYSIS (RTPO)

Rural Benton County In large measure, road access for rural and agricultural areas in rural Benton County is good and improving. However, the road system may be considered to provide less than convenient access to some of the outlying rural areas.

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Congestion challenges are absent on county roads serving rural or agricultural areas; existing Level of Service (LOS) is B or higher. Generally, principle road concerns in rural areas are "all weather" access for agricultural product transport, and more direct farm-to-market routes for agricultural products.

Benton City All of Benton City’s functionally classified streets are predicted to operate at LOS A or B in the Year 2030, with one exception. State Route (SR) 225, which is contiguous with components of the Benton City street system from the Yakima River north to SR 240, is forecast to operate at LOS D by 2020. This is a situation which Benton City and WSDOT should monitor over time.

Prosser Most segments of the Prosser street system currently operate at LOS B or better. Projected volumes based on traffic count data suggest the downtown area south of the railroad tracks is the area of town most prone to future congestion. Because increased downtown business activity would lead to increased congestion, Prosser’s 2011 Comprehensive Plan reduces the downtown LOS threshold to “D” in order to accommodate the City’s vision for a more robust downtown. The remainder of Prosser’s street system has an LOS threshold of “C”.

Higher traffic volumes are also projected north of the Yakima River on Wine Country Road. Recent improvements on Wine Country Road were designed to accommodate these higher traffic volumes. However, continued intensification of growth accessing the intersections at the I-82 interchange and Merlot Drive in the north part of the city will require a major street improvement project at some point during the planning period.

Rural Franklin County Most of Franklin County’s functionally classified rural roads currently operate at LOS A or B. A few segments operate at LOS C, the regionally adopted standard. In 20 years, segments of Road 68 North and Taylor Flats Road may degrade to LOS D and merit future monitoring. These segments constitute a very small percentage of the classified rural road system. As such, traffic congestion is generally not a problem in rural Franklin County.

Connell Calculations based on traffic counts performed prior to completion of the Coyote Ridge Correctional Facility expansion show all of Connell’s functionally classified streets operating at Level of Service (LOS) “A” or “B” through the Year 2030 except for portions of Columbia Avenue north of Elm Street where higher traffic volumes may occur. Traffic flow, operating speeds, and maneuverability on most of the street system is expected to be at acceptable levels through the planning period. The need to widen Columbia Avenue beyond the current three lanes would be near the end of the 20-year horizon of the Plan. The effects of Coyote Ridge expansion on population-related and employment-related trips need to be more closely examined.

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Kahlotus All of Kahlotus’ functionally classified streets, including State Routes 21, 260, and 263, are projected to operate at LOS A in the Year 2030. Anticipated need is likely to be in the form of street maintenance and the necessity for wider streets with curbs, gutters, and sidewalks.

Mesa All of Mesa’s functionally classified streets are projected to still operate at LOS A during the life of the Plan. Therefore, projects are generally triggered by pavement condition and the need for wider streets with curbs, gutters, and sidewalks.

Rural Walla Walla County Overall, traffic congestion is not a problem on Walla Walla County’s rural roads. All of the County’s roads currently operate at LOS A or B, and population growth in the rural County has been slow – less than one percent/year between 2000 and 2010. None of the County- controlled roadways are projected to exceed their level of service standard by the year 2030.

Urban Walla Walla County Capacity deficiencies may develop on roads currently under county jurisdiction but in the adopted Walla Walla or College Place Urban Growth Area over the twenty-year life of the Plan. Cooperation between neighboring jurisdictions is essential in addressing maintenance and capacity issues because City growth and the expansion of city limits could encompass those areas within that time frame.

Prescott All of Prescott’s functionally classified streets, including SR 124, are predicted to operate at LOS A or B throughout the 20-year planning period. Therefore, projects are generally triggered by pavement condition and the need for wider streets with curbs and sidewalks. The city’s ability to finance such improvements relies upon securing state and/or federal funding.

Waitsburg The City of Waitsburg is unique in that the two principal arterials in town are actually State highways: State Route 12 (Coppei Avenue) and State Route 124 (Preston Avenue), which are maintained by the State Department of Transportation. The state routes are projected to operate at LOS A or B, as are all of Waitsburg’s remaining streets.

Walla Walla Streets in Walla Walla generally operate at acceptable levels of service. Several deficiencies were identified in the 2004 Traffic Circulation Study; however, changes to the regional transportation network have occurred since then, altering conditions defined in that report. Regional changes to the urban area traffic system since the Study, altering conditions defined in that report.

Changes to the City’s transportation network have occurred since that time. A project to reconstruct 13th Avenue from Abadie Street to Cherry Street to minor arterial standard is scheduled for construction in 2012. Additionally, the Myra Road – SR 125 to Garrison Creek project, which includes a grade separated intersection, is being studied.

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College Place Most streets in College Place currently operate at acceptable levels of service. As noted with Walla Walla, deficiencies were identified in the 2004 Walla Walla/College Place Traffic Circulation Study.

Improvements to the local transportation network are also underway. The City of College Place is also reconstructing and improving roughly a mile of Whitman Drive from Larch to Academy Drive with completion anticipated by November 2011. Additionally, the City is planning the reconstruction of Rose Avenue, a principal east-west arterial from Myra Road through College Avenue, a principal north-south arterial.

WSDOT - RTPO Analysis of state routes in the rural RTPO region has determined that very few potential capacity challenges over the life of the plan.

SR 125 through Walla Walla functions as a city street with numerous intersections, traffic signals and commercial activities. The inherent congestion and delay are not conducive to through travel. There have been discussions between urban area jurisdictions and WSDOT to transfer jurisdictional responsibilities for the existing SR 125 and the new Myra Road, which would become the new SR 125.

SR 225 extends from Interstate 82 through Benton City to SR 240 at Horn Rapids, serving as Benton City’s main street. Hanford commuters dominate peak volumes on this two-lane roadway and the route should be monitored for capacity problems.

FINANCIAL PLAN

The 22-year financial plan is required to be constrained to reflect what realistically may be done with available revenues during the 22-year planning horizon. This requirement means that the improvements included in the plan, and the maintenance and preservation of the existing transportation system, must be affordable within already available and projected sources of revenue.

The Tri-Cities metropolitan area transportation system is forecast to cost $1,062 million to maintain and provide needed improvements over the next 22 years. Of this total, $474 million (45%) will be needed to maintain and operate the system, and $589 million (55%) will be available for improvements. At the end of the 22-year planning horizon, the MPO will have an estimated $30 million surplus. In addition, the MPO will need to generate an additional $110 million in revenue to fund projects identified as unmet need.

The balance of the regional transportation system outside the MPO area is estimated to cost $1,065 million to maintain and provide needed improvements over the next 20 years. Of this total, $476 million (45%) will be needed to maintain and operate the system, and $589 million (55%) will be available for improvements. At the end of the 20-year planning horizon, the rural RTPO planning area will have a remaining estimate of -$29 million. In addition to this shortfall, the rural RTPO will need to generate an additional $68 million in revenue to fund projects identified as unmet need.

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The MPO/RTPO members have indicated any funding shortfalls, excluding the planning projects, will be reduced to a manageable level and/or eliminated as project priorities and plans are defined and future transportation improvement plans are developed.

CONCLUSIONS

Public investment in the transportation system is essential to the health, safety, and economic prosperity of the region. The RTP identifies cost-effective transit and highway improvements, using each mode of travel where it is best suited to meet the travel demand of the community.

The future regional transportation system must be consistent with the land use goals and plans of each of the jurisdictions. Ensuring orderly growth is essential to the success of the transportation system. Lack of agreement between land use and transportation planning will result in unnecessary capital investment, underused facilities, or under-designed roadways incapable of serving the demand.

The Regional Transportation Plan is a planning and programming tool to assist in solving regional transportation problems. The RTP provides a basis for assessing the impacts of years 2020 and 2030 travel demand, and requires periodic updates to remain consistent with community goals.

The RTPO shall review the RTP biennially for currency and shall update it at least every five years to incorporate changing conditions and financial reality.

The BFCG will monitor the performance of the RTP and compare with the updated local comprehensive plans; thus, continuously gathering information about programs and projects implemented from this plan. This information will tell us how well the plan is being executed and the effectiveness of proposed strategies. It will also provide feedback to policy makers and the public on whether the policies and provisions in the RTP are helping to realize the preferred future for the region.

PLAN AND POLICY IMPLICATION

This Regional Transportation Plan was developed jointly by the Benton-Franklin Council of Governments and member jurisdictions, including the Washington State Department of Transportation. Adoption of the plan by the BFCG Board includes the following:

 Endorsement of regional transportation system components, including the street and highway system, public transit systems, regional airport system, water and land-based freight systems, and a commuter management program.

 Identification and documentation of transportation system deficiencies including: travel corridors with inadequate capacity to meet current and future travel demand; the need for transit to capture a higher percent of work trips; and the need to decrease the numbers of drive alone work trips by increasing the ridesharing and park & ride programs.

 Recognition of a state mandate to possibly have Commute Trip Reduction Plans and Ordinances in place.

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 Endorsement of the level of transportation investment needed to adequately serve current and anticipated growth.

 Endorsement of the regional transportation planning framework as the process for achieving a unified direction on transportation polices and coordination with comprehensive land use planning.

 Completion of a federal requirement as a condition for receiving federal Surface Transportation Program funding, and as a basis for review of projects proposed for funding within the near-term Transportation Improvement Program (TIP).

 Implementation of the transportation plan, including transit plans, by the responsible jurisdictions.

 Establishment of consistency between this plan, the MPO/RTPO six-year Transportation Improvement Program (TIP), and the Washington Transportation Plan.

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2011-2032

REGIONAL TRANSPORTATION PLAN

FOR THE

TRI-CITIES METROPOLITAN AREA

AND THE

BENTON-FRANKLIN-WALLA WALLA RTPO

NOVEMBER 2011 (REVISED MAY 2012)

Prepared by the Benton-Franklin Council of Governments Transportation Staff Mark Kushner, Transportation Director Len Pavelka, AICP, Transportation Planning Specialist III Tanna Dole, Transportation Planning Specialist III Brian Malley, Modeling/GIS Specialist Geoff Wagner, Transportation Planner I Monica Sanchez, Administrative Staff

This Regional Transportation Plan has been financed in part through grants from the Federal Highway Administration, Federal Transit Administration, and the Washington State Department of Transportation. The policies, findings, and recommendations contained in this plan, do not necessarily represent the views of the MPO/RTPO agencies identified herein and do not obligate those agencies to providing funding to implement the contents of the Plan as adopted.

This document incorporates by reference the “2010 Regional Bicycle and Pedestrian Plan for Benton, Franklin and Walla Walla Counties and the Tri-Cities Urban Area” and the “2010 Coordinated Public Transit – Human Services Transportation Plan for Benton, Franklin and Walla Walla Counties”.

After comment from WSDOT/Transportation Planning Office, this document was revised in May 2012 to extend the planning period for the metropolitan area a full twenty years beyond the adoption date (as required by federal statute). References to the planning period were revised throughout the document. As part of this revision, concerns with financial constraint were also addressed. Additionally, the public involvement section was revised to contain information related to this revision.

For information concerning, or copies of either of these plans, please contact the Benton- Franklin Council of Governments.

Benton-Franklin Council of Governments PO Box 217 1622 Terminal Drive Richland, WA 99352 Phone: (509) 943-9185 Fax: (509) 943-6756 www.bfcog.us

TABLE OF CONTENTS

PAGE # PREFACE ...... i EXECUTIVE SUMMARY ...... ii THE PLAN ...... ii BACKGROUND...... ii MAJOR REGIONAL ISSUES ...... iii GOALS AND POLICIES ...... v TRI-CITIES DEFICIENCY ANALYSIS (MPO) ...... v REGIONAL DEFICIENCY ANALYSIS (RTPO) ...... vii FINANCIAL PLAN ...... x CONCLUSIONS ...... xi PLAN AND POLICY IMPLICATION ...... xi

CHAPTER ONE – REGIONAL OVERVIEW BENTON-FRANKLIN COUNCIL OF GOVERNMENTS ...... 1-1 BFCG Board Membership - 2011 ...... 1-3 BFCG Committee Membership - 2011 ...... 1-3 UNIFIED PLANNING WORK PROGRAM (UPWP) ...... 1-4 TRANSPORTATION IMPROVEMENT PROGRAM (TIP) ...... 1-4 METROPOLITAN PLANNING ORGANIZATION (MPO) ...... 1-5 AGENCY CONSISTENCY AND COOPERATION ...... 1-5 TRANSPORTATION MANAGEMENT AREA ...... 1-6 FEDERAL PLANNING REQUIREMENTS ...... 1-7 ISTEA, TEA-21 & SAFETEA-LU ...... 1-7 FEDERAL REQUIREMENTS FOR A METROPOLITAN TRANSPORTATION PLAN ...... 1-9 PUBLIC AND AGENCY PARTICIPATION PROCEDURES ...... 1-9 AIR QUALITY CONSIDERATIONS ...... 1-11 AMERICANS WITH DISABILITIES ACT ...... 1-11 2010 COORDINATED PUBLIC TRANSPORTATION – HUMAN SERVICES TRANSPORTATION PLAN...... 1-11 2010 REGIONAL BICYCLE AND PEDESTRIAN TRANSPORTATION PLAN ...... 1-12 TRIBAL CONSULTATION ...... 1-12 TRANSPORTATION SYSTEM SECURITY ...... 1-13 Identification of Evacuation Routes ...... 1-13 Preparedness/Response Exercises ...... 1-13 Radiation-Related Emergencies ...... 1-13 Chemical Weapons Emergencies ...... 1-13 Other Preparations ...... 1-14 Critical Facilities Assessment ...... 1-14 ENVIRONMENTAL MITIGATION ...... 1-15 GREENHOUSE GASES/CLIMATE CHANGE (Federal) ...... 1-16 LIVABILITY/SUSTAINABILITY ...... 1-16 OBJECTIVES-DRIVEN PERFORMANCE-BASED PLANNING ...... 1-16 REGIONAL TRANSPORTATION PLANNING ORGANIZATION (RTPO) ...... 1-17 STATE REQUIREMENTS FOR A REGIONAL TRANSPORTATION PLAN (RTP) ...... 1-18 JURISDICTION COORDINATION ...... 1-19 THE WASHINGTON TRANSPORTATION PLAN/REGIONAL TRANSPORTATION PLAN RELATIONSHIP ...... 1-19 THE WASHINGTON TRANSPORTATION PLAN (WTP) ...... 1-19 WASHINGTON STATE’S HIGHWAY SAFETY PLAN: TARGET ZERO ...... 1-21 GREENHOUSE GASES/CLIMATE CHANGE (State) ...... 1-22

CHAPTER TWO – REGIONAL TRANSPORTATION ISSUES & CONCERNS LAND USE AND TRANSPORTATION ...... 2-1 PRESERVATION AND MAINTENANCE ...... 2-1 SAFETY DEFICIENCIES ...... 2-2 AUTOMOBILE DEPENDENCE ...... 2-3 THE HANFORD COMMUTE ...... 2-6 HANFORD TANK WASTE REMEDIATION PROJECT ...... 2-7 COMMUTE TRIP REDUCTION ...... 2-7 RIDESHARING ...... 2-9 REGIONAL INTERCITY TRANSIT ...... 2-9 PASSENGER RAIL IN EASTERN WASHINGTON ...... 2-10 STAMPEDE PASS RAIL IMPACTS ...... 2-10 PRESERVATION OF LIGHT DENSITY RAIL LINES ...... 2-11 THE GRAIN TRAIN PROGRAM ...... 2-12 SEASONAL WEIGHT RESTRICTIONS ...... 2-13 REGIONAL AVIATION AND LAND USE ...... 2-15 SNAKE RIVER/COLUMBIA RIVER DAM AND LOCK SYSTEM ...... 2-15 SNAKE RIVER DRAW DOWN/DAM BREACHING ...... 2-16 The Snake River Draw Down Study ...... 2-16 COLUMBIA-SNAKE RIVER SYSTEM MAJOR MAINTENANCE FOR INLAND PROJECTS ...... 2-17 SNAKE RIVER DREDGING ...... 2-17 THE COLUMBIA RIVER CHANNEL IMPROVEMENT PROJECT ...... 2-18 UNCERTAINTY OF DEDICATED TRANSPORTATION FUNDS ...... 2-18 AUTOMOBILE CONGESTION AND ALTERNATIVES TO DRIVING ...... 2-19 AGING POPULATION ...... 2-23 SPECIAL NEEDS TRANSPORTATION ...... 2-25 GREENHOUSE GASES/CLIMATE CHANGE ...... 2-26 LIVABILITY/SUSTAINABILITY ...... 2-28 OBJECTIVES-DRIVEN PERFORMANCE-BASED PLANNING ...... 2-29 ELECTRIC VEHICLE INFRASTRUCTURE ...... 2-30

CHAPTER THREE – REGIONAL TRANSPORTATION GOALS & POLICIES INTRODUCTION ...... 3-1 MISSION ...... 3-1 GOALS OF THE RTP ...... 3-1 POLICIES ...... 3-2 Policy 1 – Access & Access Management ...... 3-2 Policy 2 - Efficiency ...... 3-3 Policy 3 - Balance ...... 3-3 Policy 4 – Safety & Security ...... 3-4 Policy 5 – Safety Conscious Planning (SCP) ...... 3-5 Policy 6 – Environmental Responsibility ...... 3-6 Policy 7 – Transportation Financing ...... 3-7

Policy 8 – Intergovernmental Cooperation Including Regional Consistency & Certification ...... 3-7 Policy 9 – Citizen Involvement and Public Education ...... 3-9 Policy 10 – Livability, Sustainability & Land Use ...... 3-10 Policy 11 – Pedestrians and Bicycles ...... 3-11 Policy 12 – Transit Element ...... 3-12 Policy 13 – Transportation Demand Management/Commute Trip Reduction .... 3-13 Policy 14 – Streets and Highways ...... 3-14 Policy 15 – Air/Waterways/Rail ...... 3-15 Policy 16 – Freight Movement ...... 3-15 Policy 17 - Intermodalism ...... 3-17 Policy 18 – Transportation and Economics ...... 3-18 Policy 19 – Maintenance and Preservation ...... 3-19

CHAPTER FOUR – THE REGIONAL MULTIMODAL TRANSPORTATION SYSTEM INTRODUCTION ...... 4-1 STATE HIGHWAY SYSTEM ...... 4-2 THE NATIONAL HIGHWAY SYSTEM (NHS) ...... 4-6 TRANSPORTATION FACILITIES AND SERVICES OF STATEWIDE SIGNIFICANCE ...... 4-8 HIGHWAYS OF STATEWIDE SIGNIFICANCE ...... 4-8 STATE SCENIC AND RECREATIONAL HIGHWAY SYSTEM ...... 4-10 FREIGHT AND GOODS TRANSPORTATION SYSTEM ...... 4-12 THE REGIONAL MULTIMODAL TRANSPORTATION SYSTEM ...... 4-14 DESIGNATION OF THE REGIONAL TRANSPORTATION SYSTEM ...... 4-16 BICYCLE AND PEDESTRIAN SYSTEM ...... 4-16 TRANSIT ...... 4-17 Ben Franklin Transit ...... 4-17 Valley Transit ...... 4-18 Ben Franklin Transit Vanpool Program ...... 4-20 Additional Public Transportation Services ...... 4-21 PARK AND RIDE LOTS ...... 4-22 INTER-MODAL CONNECTIONS ...... 4-25 REGIONAL AVIATION ...... 4-25 REGIONAL AVIATION FACILITIES ...... 4-27 REGIONAL FREIGHT RAIL SYSTEMS ...... 4-29 RAILROAD CLASSIFICATION ...... 4-29 FREIGHT RAIL SERVICE PROVIDERS IN THE RTPO ...... 4-30 Class I Railroads ...... 4-30 Class II Railroads ...... 4-32 Class III Railroads ...... 4-32 Additional Freight Rail Services in the RTPO ...... 4-34 PASSENGER RAIL ...... 4-36 FREIGHT RAIL, GRAIN ELEVATORS AND RIVER TRANSPORTATION ...... 4-37 WATER TRANSPORT ...... 4-37 SNAKE RIVER/COLUMBIA RIVER DAM AND LOCK SYSTEM ...... 4-38 LOCAL PORT DISTRICTS - COLUMBIA RIVER FACILITIES...... 4-40 PIPELINES ...... 4-41

CHAPTER FIVE – DEMOGRAPHICS, POPULATION AND LAND USE THE AMERICAN COMMUNITY SURVEY ...... 5-1 THE TRI-CITIES METROPOLITAN STATISTICAL AREA ...... 5-1 Population by Race and Ethnicity ...... 5-1 Income and Poverty ...... 5-3 THE RTPO – BENTON, FRANKLIN AND WALLA WALLA COUNTIES ...... 5-5 Race and Ethnicity ...... 5-5 Income and Poverty ...... 5-6 POPULATION PROJECTIONS ...... 5-8 POPULATION TRENDS ...... 5-10

CHAPTER SIX– TRI-CITIES AREA TRAFFIC MODEL INTRODUCTION ...... 6-1 MODEL ASSUMPTIONS ...... 6-1 TRI-CITIES POPULATION AND EMPLOYMENT FORECASTS ...... 6-2 MODEL DEVELOPMENT...... 6-5 CALIBRATION RESULTS ...... 6-6

CHAPTER SEVEN – MODEL RESULTS & METROPOLITAN TRANSPORTATION SYSTEM EVALUATION INTRODUCTION ...... 7-1 FINANCIALLY CONSTRAINED PROJECT LISTS ...... 7-1 PORTRAYING CONGESTION/LEVEL OF SERVICE ...... 7-2 2010 BASE-YEAR RESULTS ...... 7-3 OTHER OPERATIONAL CONCERNS NOT IDENTIFIED BY MODEL ...... 7-3 OPERATIONAL CONCERNS FOR AM PEAK-HOUR ...... 7-4 ALTERNATIVE SCENARIOS ...... 7-4 DEFICIENCY IDENTIFICATION ...... 7-5 2020 “No-Build” ...... 7-5 2020 “Build” ...... 7-5 2030 “No-Build” ...... 7-7 2030 “Build” ...... 7-8 STAFF MODEL OBSERVATIONS ...... 7-9 CONCLUSIONS ...... 7-10 OTHER LONG RANGE PLANNING CONSIDERATIONS ...... 7-11 Columbia River Crossing Study/Tri-Cities ...... 7-11 US 395 Corridor Study ...... 7-12

CHAPTER EIGHT – RURAL JURISDICTIONS STREET AND ROAD SYSTEM EVALUATION INTRODUCTION ...... 8-1 REGIONAL LEVEL OF SERVICE STANDARDS ...... 8-1 EVALUATION OF RURAL JURISDICTIONS ...... 8-1 THE WALLA WALLA/COLLEGE PLACE TRAFFIC CIRCULATION STUDY...... 8-3 EVALUATION OF THE WALLA WALLA URBAN AREA ...... 8-3 WSDOT – RTPO ...... 8-4

CHAPTER NINE – FINANCES HISTORICAL REVENUES AND EXPENDITURES: 1999-2008 ...... 9-1 MPO 22-YEAR FINANCIAL ANALYSIS: 2011-2032 ...... 9-6 MPO ROAD SYSTEM 22-YEAR FINANCIAL ANALYSIS ...... 9-6 BEN FRANKLIN TRANSIT ...... 9-6 CONCLUSION - TOTAL MPO 22-YEAR FINANCIAL ANALYSIS ...... 9-6 RURAL RTPO 20-YEAR FINANCIAL ANALYSIS ...... 9-7 RURAL RTPO ROAD SYSTEM 20-YEAR FINANCIAL ANALYSIS ...... 9-7 VALLEY TRANSIT ...... 9-7 JURISDICTIONS/AGENCIES NOT INCLUDED IN FINANCIAL ANALYSIS ...... 9-8 UNMET NEED ...... 9-8

CHAPTER TEN – PLAN IMPLEMENTATION REGIONAL GROWTH STRATEGY ...... 10-1 Urban Development ...... 10-1 Rural Development...... 10-2 Development of Resource Lands ...... 10-2 REGIONAL TRANSPORTATION STRATEGIES ...... 10-2 PERFORMANCE MEASUREMENT ...... 10-4 OBJECTIVES-DRIVEN PERFORMANCE-BASED PLANNING ...... 10-6 THE ROLE OF THE MPO/RTPO...... 10-7 NEXT STEPS ...... 10-7

CHAPTER ELEVEN – PUBLIC AND AGENCY INVOLVEMENT JURISDICTIONAL REVIEWS ...... 11-1 PUBLIC NOTIFICATION ...... 11-1 2010 TRANSPORTATION SURVEY ...... 11-1

APPENDICES APPENDIX A – FEDERAL MPO REQUIREMENTS APPENDIX B – WASHINGTON STATE RTPO REQUIREMENTS APPENDIX C – REGIONAL CONSISTENCY AND CERTIFICATION PROCESS APPENDIX D – INDUSTRY & MAJOR EMPLOYERS DIRECTORY APPENDIX E – TRI-CITY AREA POPULATION, HOUSING, AND EMPLOYMENT PROJECTIONS BY TRAFFIC ANALYSIS ZONE (TAZ) APPENDIX F – LIST OF MODEL DEFICIENCIES IDENTIFIED FOR BASE YEAR (2010), 2020-BUILD, AND 2030 BUILD APPENDIX G – FINANCE APPENDIX H – RTPO TWENTY-YEAR PROJECT LISTINGS: URBAN AND RURAL JURISDICTIONS APPENDIX I – GLOSSARY OF TERMS AND ACRONYMS APPENDIX J – PUBLIC AND AGENCY INVOLVEMENT APPENDIX K – 2010 TRANSPORTATION SURVEY

TABLES

1-1 MPO-Non-TMA MPO & TMA Comparisons ...... 1-6

2-1 Traffic Fatalities and Serious Injuries in RTPO Counties ...... 2-3 2-2 2000-2010 Traffic Volumes on State Highways ...... 2-3 2-3 Seasonal Weight Restrictions – Rural Freight & Goods Routes by County ...... 2-13 2-4 Estimated 2000-2030 RTPO Population Growth ...... 2-24 2-5 Estimated 2000-2030 RTPO Population Growth Age 65 and Older ...... 2-25

4-1 State Route Mileage in Benton, Franklin and Walla Walla Counties ...... 4-5 4-2 RTPO Average Daily Highway Truck Traffic, 2002 to 2012 ...... 4-14 4-3 Ben Franklin Transit Vanpool Operations Data ...... 4-20 4-4 Formal Park and Ride Lots in the Tri-Cities Metropolitan Area...... 4-23 4-5 Washington Airport 2009 Passenger Enplanements ...... 4-26 4-6 Washington Airport 2005 Air Cargo Tonnage ...... 4-27 4-7 Airports in the Benton-Franklin-Walla Walla RTPO ...... 4-27 4-8 1998-2010 Aviation Activity – Tri Cities Regional Airport ...... 4-28 4-9 1998-2010 Aviation Activity – Walla Walla Regional Airport ...... 4-28 4-10 Freight Rail Service Providers in the Benton-Franklin-Walla Walla RTPO ..... 4-30 4-11 2007, 2010 Walla Walla COE District Barge Tonnage by Commodity ...... 4-38 4-12 Grain Elevators with River Access Along the Snake-Columbia River System in the RTPO ...... 4-39 4-13 2007, 2010 Walla Walla COE District Barge Tonnage by Lock...... 4-40

5-1 Race and Ethnicity – Washington State and Select MSAs ...... 5-2 5-2 Race and Ethnicity by Percent – Washington State and Select MSAs ...... 5-2 5-3 Household Income Status – Washington State and Select MSAs ...... 5-3 5-4 Household Income Status by Percent – Washington State and Select MSAs..... 5-3 5-5 Income Status Below Poverty Level – Washington State and Select MSAs ...... 5-4 5-6 Income Status Below Poverty Level by Percent – Washington State and Select MSAs ...... 5-4 5-7 Race and Ethnicity – Washington State and RTPO Counties ...... 5-5 5-8 Race and Ethnicity by Percent – Washington State and RTPO Counties ...... 5-6 5-9 Household Income Status – Washington State and RTPO Counties ...... 5-7 5-10 Household Income Status by Percent – Washington State and RTPO Counties ...... 5-7 5-11 Income Status below Poverty Level – Washington State and RTPO Counties ... 5-8 5-12 Income Status below Poverty Level by Percent – Washington State and RTPO Counties ...... 5-8 5-13 Estimated 2000-2030 RTPO Population Growth – OFM Medium Series ...... 5-9 5-14 Estimated 2000-2030 RTPO Population Growth – OFM High Series ...... 5-10 5-15 OFM April 1st Annual Population Estimates, 2001-2011 ...... 5-11 5-16 OFM Fall 2011 Highway Urban Area Population Estimates, 2001-2011 ...... 5-12

6-1 Land Use Categories ...... 6-3 6-2 Population Forecasts by Agency and Year ...... 6-3 6-3 Percent Error by Functional Class (Model Wide) ...... 6-8

9-1 1999-2008 Transportation Revenue by Category in the Benton-Franklin- Walla Walla RTPO ...... 9-4 9-2 1999-2008 Non-Construction Transportation Expenditures by Category in the Benton-Franklin-Walla Walla RTPO ...... 9-4 9-3 2011-2032 MPO Road System Financial Analysis ...... 9-6 9-4 Ben Franklin Transit 2011-2032 RTPO Financial Analysis ...... 9-6 9-5 Total MPO 2011-2032 Financial Analysis ...... 9-7 9-6 Rural RTPO Road System 2011-2030 Financial Analysis ...... 9-7 9-7 Valley Transit 2011-2030 RTPO Financial Analysis ...... 9-7

FIGURES

1-1 MPO/RTPO Boundaries ...... 1-2

2-1 Traffic Fatalities and Serious Injuries per 100M VMT in RTPO Counties ...... 2-2 2-2 Selected Regional WSDOT Traffic Count Sites ...... 2-4 2-3 2009 Tri-Cities Traffic Flow ...... 2-5 2-4 1999-2010 Hanford SOV/HOV percentages ...... 2-7 2-5 All Weather Road System RTPO ...... 2-14 2-6 2006-2009 Tri-City Area MSA Journey-to-Work Mode Choice ...... 2-20 2-7 Benton County Journey-to-Work Mode Choice ...... 2-20 2-8 Franklin County Journey-to-Work Mode Choice ...... 2-21 2-9 Walla Walla County Journey-to-Work Mode Choice ...... 2-21 2-10 Estimated 2000-2030 RTPO Population Growth by RTPO and County ...... 2-24 2-11 Estimated 2000-2030 RTPO Population Growth – Ages 65 and Above ...... 2-25

4-1 State Highway System RTPO ...... 4-4 4-2 National Highway System RTPO ...... 4-7 4-3 Highways of Statewide Significance RTPO ...... 4-9 4-4 Scenic and Recreational Highways RTPO ...... 4-11 4-5 2009 FGTS Routes RTPO ...... 4-13 4-6 2011 Regional Truck Traffic Count Sites ...... 4-15 4-7 2011 Public Transportation Benefit Areas ...... 4-19 4-8 Ben Franklin Transit Vanpool Ridership – 1990 to 2010 ...... 4-21 4-9 Ben Franklin Transit Vanpool Miles – 1990 to 2010 ...... 4-21 4-10 2011 Park and Ride Lots RTPO ...... 4-24 4-11 RTPO Rail System ...... 4-33 4-12 Grain Train Carloads 1995-2010 ...... 4-35 4-13 2001-2010 Passenger Arrivals and Departures, Pasco Station ...... 4-37 4-14 RTPO Transportation Facilities ...... 4-42

5-1 Race and Ethnicity by Percent – Washington State and Select MSAs ...... 5-3 5-2 Household Income Status by Percent – Washington State and Select MSAs..... 5-4 5-3 Income Status Below Poverty Level by Percent– Washington State and Select MSAs ...... 5-5 5-4 Race and Ethnicity by Percent – Washington State and RTPO Counties ...... 5-6 5-5 Household Income Status by Percent – Washington State and RTPO Counties . 5-7

5-6 Income Status Below Poverty Level by Percent– Washington State and RTPO Counties ...... 5-8 5-7 Estimated 2000-2030 RTPO Population Growth – OFM Medium Series ...... 5-9 5-8 Estimated 2000-2030 RTPO Population Growth – OFM HGH Series ...... 5-10

6-1 Tri-City Metropolitan Area TAZ Structure ...... 6-2 6-2 Projected Growth in Dwelling Units, by TAZ ...... 6-4 6-3 Projected Change in Employment by TAZ ...... 6-5 6-4 Correlation Coefficient (R-Squared) ...... 6-7

7-1 V/C Ratio & Link Volume Example ...... 7-2 7-2 Projects for 2020 Build Scenario ...... 7-6 7-3 2020-Build Volumes and V/C Ratio ...... 7-7 7-4 Projects for 2030 Build Scenario ...... 7-8 7-5 Ten CRCS Evaluation Locations ...... 7-11 7-6 CRCS Alternatives for Future Analysis ...... 7-12

9-1 1999-2008 Transportation Revenue by Category in the Benton-Franklin- Walla Walla RTPO ...... 9-2 9-2 1999-2008 Non Construction Transportation Costs by Category in the Benton-Franklin-Walla Walla RTPO ...... 9-3 2011-2032 Regional Transportation Plan

CHAPTER ONE – REGIONAL OVERVIEW

BENTON-FRANKLIN COUNCIL OF GOVERNMENTS

The Benton-Franklin Council of Governments (BFCG) is an intergovernmental board comprised of local governmental jurisdictions and agencies within Benton, Franklin, and Walla Walla counties. Non-voting and ex-officio members from both the public and private sectors also actively participate in activities of the agency.

The BFCG is the lead planning agency for both the Tri-Cities Metropolitan Planning Organization (MPO) and the Benton-Franklin-Walla Walla Regional Transportation Planning Organization (RTPO). The MPO is federally mandated and authorized to fulfill federal planning requirements for the Kennewick, Pasco, Richland, West Richland urbanized area. The RTPO is voluntary, locally developed, and fulfills state planning requirements for the three-county region. The organization is comprised of twenty-three member jurisdictions/agencies, which represent the region’s population of 317,200.

The BFCG fulfills its MPO/RTPO responsibilities through Tri-MATS (Tri-Cities Metropolitan Area Transportation Study), consisting of a Technical Advisory Committee (TAC), a Policy Advisory Committee (PAC), and the BFCG Board. Citizen task forces are also intermittently formulated for specific projects.

The mission is a continuous, cooperative, and comprehensive planning process that results in regional multi-modal transportation plans and programs that anticipate the social, economic, and environmental needs of the metropolitan area, the region, and the state. Major products of the process are this long-range (20-year) Regional Transportation Plan, a long-range (20- year) Metropolitan Transportation Plan, the regional Transportation Improvement Program (6- year), the Unified Planning Work Program (annual), a comprehensive transit plan (annual), and special planning and research studies.

The TAC is comprised of engineers and planners representing local jurisdictions, transit, special purpose districts, and the Washington State Department of Transportation (WSDOT). The TAC provides staff level input to the activities being undertaken and forwards its recommendations to the PAC and the Board.

The PAC is comprised of elected officials from the same jurisdictions represented at the technical level. The PAC provides policy review and guidance to activities and projects that will require action or adoption by the BFCG Board and/or local jurisdictions. This multi-level forum provides coordination and consensus prior to adoption of work program products.

Like the PAC, the Board is comprised of elected officials. The Board is the legally recognized governing body for the MPO, and must formally adopt all federal and state requirements.

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BFCG BOARD MEMBERSHIP - 2011

Jurisdiction Representative

Benton County James Beaver Franklin County Brad Peck City of Kennewick Bob Olson City of Richland Dave Rose City of Pasco Al Yenney City of Benton City Lloyd Carnahan City of Prosser Randy Taylor City of West Richland Brent Gerry City of Connell Lee Barrow City of Kahlotus Vacant City of Mesa Vacant Port of Pasco Bill Clark Port of Kennewick Skip Novakovich Port of Benton Robert Larson Ben Franklin Transit Bob Koch Benton Public Utility District Lori Kay-Sanders

The BFCG undertakes transportation related activities that are of regional significance or are of particular importance to member jurisdictions. Each member supports the Council activities through an annual assessment, based on a per capita formula. The Council is governed by the jurisdictional representatives, who, as a group, determine the work program of the BFCG and the necessary budget to ensure the completion of that program.

BFCG COMMITTEE MEMBERSHIP - 2011

Jurisdiction PAC Representative TAC Representative

Benton County Leo Bowman Malcolm Bowie Franklin County Brad Peck Tim Fife Walla Walla County Gregg Tompkins Randy Glaeser City of Kennewick Bob Olson Ken Nelson City of Richland Dave Rose Steve Stairs City of Pasco Bob Hoffmann Ahmad Qayoumi City of Benton City Lloyd Carnahan Bob Spink ** City of Prosser Randy Taylor L.J. DaCorsi City of West Richland Tony Benegas Roscoe Slade City of Connell Lee Barrow Larry Turner City of Kaholtus Richard Halverson Sharon McCaleb* City of Mesa Austin Davis Teresa Standridge* City of Walla Walla Jerry Cummins Neal Chavre City of College Place Rick Newby Paul Hartwig City of Waitsburg Walt Gobel Randy Hinchliffe* Port of Pasco Bill Clark Randy Hayden Port of Benton Robert Larson Roger Wright Port of Kennewick Skip Novakovich Larry Peterson

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Port of Walla Walla Ron Dunning Paul Gerola Ben Franklin Transit Bob Koch Kathy McMullen Valley Transit Gregg Loney Dick Fondahn WSDOT Don Whitehouse Paul Gonseth Mission Support Alliance ------Frank Powell Fluor Daniel Hanford, Inc. ------Battelle Northwest ------

 City Clerk, not delegate ** Engineering Consultant

UNIFIED PLANNING WORK PROGRAM (UPWP)

To secure federal and state funding to sustain metropolitan and regional transportation planning, the BFCG annually prepares a Unified Planning Work Program in cooperation with the Federal Highway Administration (FHWA), Federal Transit Administration (FTA), the Washington State Department of Transportation (WSDOT), local governments, and Ben Franklin Transit (BFT). Emphasis areas identified by FHWA and FTA are incorporated. Any special studies anticipated to be performed by BFCG for WSDOT and the local jurisdictions are included. This may include transit planning and marketing surveys, route planning studies, the undertaking of FHWA or FTA related annual emphasis area issues, census data, a Regional Transportation Plan update, and other studies. Any anticipated corridor or subarea studies in behalf of or in cooperation with WSDOT and/or BFT will also be documented in the UPWP. Upon Tri-MATS and BFCG Board endorsement, the UPWP must be approved by WSDOT, FHWA and the FTA. The UPWP then guides BFCG transportation staff activities for the coming year.

TRANSPORTATION IMPROVEMENT PROGRAM (TIP)

In accordance with state and federal rules and guidelines, the BFCG planning process includes compilation of a Regional Transportation Improvement Program (TIP) for the MPO and RTPO in cooperation with WSDOT, Transit, and the member jurisdictions. Additionally, the BFCG, in cooperation with WSDOT and BFT, develops a financial plan that demonstrates resources are reasonably available to implement the TIP. The TIP must be financially constrained and prioritized by year, and must also identify all state, federal and local funding requirements. Finally, BFCG must certify that the TIP is consistent with the Regional Transportation Plan (RTP).

Each member jurisdiction, including WSDOT and transit, must annually review and update its six-year TIP in the format provided by WSDOT. Local TIPs are prioritized by year and financially constrained to approximate anticipated annual revenues. After adoption of local TIPs by their governing bodies, those TIPs are forwarded to BFCG for compilation into the regional TIP.

Upon compilation of a draft TIP and prior to Tri-MATS adoption, BFCG provides a public forum for review and comment. After resolving any comments, the final regional TIP is endorsed by the Tri-MATS committees and the Regional Board. The approved TIP is then forwarded to WSDOT for inclusion in the Statewide Transportation Improvement Program (STIP) for approval by the Governor. BFCG and its membership assist and cooperate with WSDOT in the regional public involvement process for the TIP.

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The TIP may be amended to reflect needed modifications to the transportation program. Procedures for interim amendments of the TIP must conform to state and federal requirements as well as BFCG policy. Public involvement in TIP preparation and/or amendment at the jurisdiction, agency or BFCG levels must conform with state and federal requirements and to supplemental BFCG Public Involvement Procedures.

Annual TIPs and amendments adopted by RTPO member jurisdictions and agencies are incorporated by reference into the 2011-2032 Regional Transportation Plan.

METROPOLITAN PLANNING ORGANIZATION (MPO)

The 1970 US Census indicated that the cities of Kennewick, Pasco, Richland, and West Richland and portions of Benton and Franklin counties reached the threshold population and density required for an urbanized area, triggering a federal requirement to designate an MPO to coordinate transportation planning and programming. In 1973, the local governments and the governor designated the BFCG as the responsible agency to carry out the required planning responsibilities of an urbanized area for highways, streets, roads, and public transportation. The 2000 US Census expanded the urbanized area into western Walla Walla County, encompassing the unincorporated communities of Burbank and Burbank Heights. The BFCG planning responsibilities are defined in the annual Unified Planning Work Program (UPWP), the MPO certification documentation, the Memorandum of Understanding (MOU) with WSDOT and Ben Franklin Transit, and the BFCG Public Involvement Procedures.

The BFCG MPO complies with federal (USDOT) regulations which require that the “metropolitan area has a continuous, cooperative, and comprehensive transportation planning process that results in plans and programs that consider all transportation modes and supports metropolitan community development and social goals. These plans and programs shall lead to the development and operation of an integrated, inter-modal transportation system that facilitates the efficient, economic movement of people and goods.” (Federal Register, Volume 58, No. 207, October 28, 1993, Section 450.300).

Federal regulations for MPO planning (23 CFR 450.316) and metropolitan area transportation plan requirements (23 CFR 450.322) are included in Appendix A. The Metropolitan Planning Area boundary is shown on Figure 1-1, page 1-2. Appendix H contains a glossary of terms, acronyms, and abbreviations used throughout this document.

AGENCY CONSISTENCY AND COOPERATION

The BFCG planning process must be consistent with and conform to all federal and state requirements, including Title 23, U.S.C., the Federal Transit Act, and the appropriate management systems as recommended by 23 CFR 500.

Two agreements exist that define relationships in the planning process. The first is the Washington State Department of Transportation (WSDOT) Coordination Agreement establishing the working relationship between WSDOT and BFCG in fulfilling the 3 C (Cooperative, Comprehensive, and Continuous) transportation planning process for the Tri- Cities Urbanized Area.

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The second is the Memorandum of Understanding with WSDOT and Ben Franklin Transit (BFT) defining each agency’s responsibilities for planning and programming, including public involvement for the regional portion of the State Transportation Improvement Program, project selections, and major metropolitan transportation investment analyses.

TRANSPORTATION MANAGEMENT AREA

The Tri-Cities Urban Area may reach the 200,000 population threshold to be reclassified as a Transportation Management Area (TMA) as an outcome of the 2010 Census. The following table outlines how TMA status would change the planning responsibilities and funding possibilities for the BFCG and the urban transportation agencies. Table 1-1 below details how certain MPO responsibilities will change.

Table 1-1: Non-TMA MPO and TMA MPO Comparisons

ACTIVITY Non-TMA MPO TMA MPO Develop/Maintain Long-Range Basis for determination and Basis for determination and selection Plan (20-Year, Financially selection of projects to include in of projects to include the in 4-Year Constrained) 4-Year TIP. TIP.

MPO shall develop TIP, including MPO shall Develop TIP, including 4- Develop Transportation 4-Year project priority list and Year project priority list and Improvement Program (TIP) financial plan. financial plan.

A Congestion Management Process (CMP) must be developed and implemented by the MPO(s) in the TMA area. Congestion Management Process Voluntary (CMP) Projects to add highway capacity for SOV’s in non attainment TMA areas must first be evaluated through a CMP. MPOs depend on WSDOT’s Allocation of Federal Surface Federal law to date has guaranteed Statewide Committee and the Transportation Program (STP) TMAs a prorated share of legislature for STP funds and Funds. “attributable” STP funds. project selection authority. Projects selected by the MPO (excluding projects on the National Highway System and projects funded under the Bridge, Interstate Maintenance, and Federal Lands Projects selected by the State Highway programs) in consultation and/or the public transportation with the State and public Project Selection from the TIP. operator(s) in cooperation with transportation operator(s) from the the MPO from the approved approved TIP. Projects on the NHS metropolitan TIP. and projects funded under the Bridge and Interstate Maintenance programs shall be selected by the State in cooperation with the MPO, from the approved TIP.

Conduct process and prepare Similar but more in-depth. Planning Planning Process and Federal planning documents in process. Planning process must be Certification Review accordance with federal reviewed and certified every 4-years transportation legislation. by FHWA & FTA. Source: 23 CFR Part 450 Subpart C – Metropolitan Planning and Programming

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FEDERAL PLANNING REQUIREMENTS

Federal transportation regulations require that metropolitan transportation planning be accomplished through formation of Metropolitan Planning Organizations (MPOs). That ongoing process creates a cooperative, continuous, and comprehensive framework for making transportation investment decisions in urbanized areas of 50,000 or more population. Those investment decisions must include both highway and transit projects. Planning funds are, therefore, provided by the Federal Highway Administration and Federal Transit Administration to carry out those MPO activities.

The 2005 federal transportation appropriations bill – the Safe, Accountable, Flexible Efficient Transportation Equity Act- A Legacy for Users (SAFETEA-LU) builds upon urban planning requirements of the previous acts, imposing substantial additional responsibilities upon MPOs. Many of the new requirements relate to consulting or coordinating with additional agencies and parties in the planning process. A more detailed look at the last three federal transportation appropriations follows.

SAFETEA-LU consolidates all provisions for metropolitan planning under Section 5303 of Title 49. Those provisions establish a national policy to encourage and promote the safe and efficient management, operation, and development of surface transportation systems that serve the needs of people and freight while encouraging economic growth, reducing fuel consumption and improving air quality both at the MPO and state levels.

MPOs are required to develop plans and TIPs that provide for integrated management and operation of transportation systems and facilities, including those for bicyclists and pedestrians. The Act encourages a relationship with other planning officials through consulting with officials responsible for state and local planned growth, economic development, environmental protection, airport operations, and freight movements. The Act also emphasizes safety and security as separate and distinct planning factors.

The work of MPOs impacts all sectors of the American economy. More than 80 percent of our citizens live and work in metropolitan areas, which drive the nation’s economy and compete head-to-head with regional economies in other countries. Because the pricing of our goods and services in the international marketplace largely determines our ability to compete successfully, we must be able to transport these goods and services efficiently. The quality of metropolitan transportation infrastructure – highways, bridges, airports, transit systems, rail, and ports – is a primary factor in American economic competitiveness.

ISTEA, TEA-21 & SAFETEA-LU

The Inter-modal Surface Transportation Efficiency Act (ISTEA) of 1991 brought about a new focus on a balanced, efficient transportation system. The 35-year interstate highway construction era was over. The ISTEA shifted decision-making about federal transportation funding from the state DOTs to a shared responsibility between the states and the MPOs. Major emphasis was put on local planning and programming. That emphasis expanded the duties of MPOs and RTPOs.

ISTEA set forth requirements for Metropolitan Transportation Plans (MTPs), including sixteen planning factors to be incorporated into the MTPs. ISTEA’s successor, the 1998 Transportation Equity Act for the 21st Century (TEA-21) built on the initiatives of ISTEA. Flexibility in the use

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2011-2032 Regional Transportation Plan of funds; emphasis on measures to improve the environment; focus on a strong planning process as the foundation of good transportation decisions---all ISTEA hallmarks---were continued and enhanced by TEA-21.

New initiatives addressed improving safety, protecting and enhancing communities and the natural environment, and advancing America’s economic growth and competitiveness, both domestically and internationally through efficient and flexible transportation. A significant feature was a guaranteed level of federal funds for surface transportation through FY 2003. SAFETEA-LU guaranteed funding levels through FFY 2009 and has subsequently been extended since then.

One of TEA-21’s changes for metropolitan planning involved restructuring ISTEA’s sixteen planning factors into the following eight more generalized areas to be considered as part of the planning process.

 Economic vitality: Support the economic vitality of the United States, the states, non- metropolitan areas, and metropolitan areas, especially by enabling global competitiveness, productivity, and efficiency.  Safety: Increase the safety of the transportation system for motorized and non- motorized users.  Security: Increase the security of the transportation system for motorized and non- motorized users.  Accessibility and mobility: Increase the accessibility and mobility of people and freight.  Environmental protection: Protect and enhance the environment, promote energy conservation, improve the quality of life, and promote consistency between transportation improvements and state and local planned growth and economic development patterns.  Integration: Enhance the integration and connectivity of the transportation system, across and between modes throughout the state, for people and freight.  Efficiency: Promote efficient system management and operation.  Preservation: Emphasize the preservation of the existing transportation system.

SAFETEA-LU’s key modifications to the metropolitan planning process include:

 MPOs are encouraged to consult or coordinate with planning officials responsible for other types of planning activities affected by transportation, including planned growth, economic development, environmental protection, airport operations, and freight movement.  The metropolitan planning process is to promote consistency between transportation improvements and state and local planned growth and economic development patterns.  Safety and security of the transportation system are separate planning factors that are to be considered during the metropolitan planning process.

Key modifications for Transportation Management Areas (TMAs):

 Must be certified not less than once every 4 years.

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 Must implement a Congestion Management Process to effectively manage and operate the system through the use of travel demand reduction and operations management strategies.  The phase-in schedule for compliance with the congestion management system may not be sooner than 1 year after identification of a TMA.  TMAs classified as non-attainment for ozone or carbon monoxide may not use federal funds to advance projects that increase single occupancy vehicles unless the project is addressed in the Congestion Management Process.  TMAs in non-attainment must coordinate with Clean Air Act Agencies to develop transportation control measures in the State Implementation Plan.

FEDERAL REQUIREMENTS FOR A METROPOLITAN TRANSPORTATION PLAN

The metropolitan planning process establishes a cooperative, continuous, and comprehensive framework for making transportation investment decisions in metropolitan areas. The federal metropolitan planning program oversight is a joint Federal Highway Administration (FHWA) and Federal Transit Administration (FTA) responsibility. Requirements for a Metropolitan Transportation Plan (MTP) are addressed in Title 23 CFR Chapter I Section 450.322. SAFETEA- LU continues many of the planning requirements of ISTEA and TEA-21 including:

 Local officials, in cooperation with the State and transit operators, remain responsible for determining the best mix of transportation investments to meet metropolitan planning needs.

 MPOs are responsible for adopting a transportation plan which has at least a 20-year planning horizon, addresses air quality consistency with the federal Clean Air Act, demonstrates fiscal constraint, and provides for public involvement throughout the planning process.

PUBLIC AND AGENCY PARTICIPATION PROCEDURES

23 CFR 450, the Statewide and Metropolitan Planning Rule, rule revises planning regulations to reflect any changes made by SAFETEA-LU.

Section 450.316: “Interested Parties, Participation, and Consultation” outlines requirements for developing a participation plan that defines a process for providing interested parties with reasonable opportunities to be involved in the metropolitan transportation planning process.

In January 2008, the Benton-Franklin Council of Governments (BFCG) adopted revised public and agency involvement procedures for transportation planning to address the additional requirements of SAFETEA-LU.

The BFCG process for development of plans and programs affords opportunity for participation by public officials, private citizens, public agencies, special interest groups, community groups and organizations, minority groups, low-income populations and private transportation providers.

An intended outcome of this process is informed and involved citizens with access to records and information, and the opportunity to participate in and influence the decision making

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2011-2032 Regional Transportation Plan process prior to commitments to specific proposals. Another goal is community support for projects and programs through early identification and resolution of issues, including adverse effects on minority or low-income populations, and removal of potential barriers or opposition caused by a poorly informed citizenry.

The MTP/RTP is an integral part of the overall work program, which provides a continuing, comprehensive, cooperative transportation planning process. The process includes review and approval by local elected officials, agency staff members and citizens. The MTP/RTP serves as the basis for transportation planning decisions and guides the expenditure of available federal transportation funds.

The MTP/RTP must be periodically reviewed and updated or amended to maintain its currency with issues, problems, and policies affecting regional planning. Agency and citizen participation is encouraged at multiple stages during the development of the update.

The BFCG hosts a public meeting in the Tri-Cities to facilitate citizen review and comment. Pertinent comments are referred to the appropriate jurisdictions for response and resolution. The revised draft MTP is processed through the Tri-MATS committees (TAC and PAC) and the Council of Governments Board. Upon adoption the document is published in final form.

Advertisements of the public meetings to discuss the draft MTP are published in regional newspapers and the BFCG newsletter. The newspaper advertisements are made for two consecutive weeks, the second being no less than one week prior to the meetings. These advertisements indicate availability of the draft document for public review at local libraries, city/county facilities, and BFCG. Similar notices are mailed to appropriate state and regional agencies, elected officials, special interest groups, and a general list of individuals known to have interest in regional planning. Additionally, the MTP is available for review on the BFCG website.

SAFETEA-LU requires consultation, as appropriate with “State, local, Indian Tribal, and private agencies responsible for planned growth, economic development, environmental protection, airport operations, freight movements, land use management, natural resources, conservation, and historic preservation”.

Data and information are conveyed through a variety of visualization techniques at BFCG public meetings. Large maps are generated to present project information. PowerPoint presentations may used to convey relevant data to meeting attendees and hand outs are available based on the presentations.

Through open houses, BFCG committee meetings and the availability of draft documents in libraries and on the BFCG website, interested agencies and the public are afforded the opportunity to review and comment on TIPs, the MTP and the RTP.

During public meetings on TIPs and the MTP, public comments are responded to directly, or if necessary, referred to a specific jurisdiction. Significant written and oral comments are noted in the final version of the document, as well as a response detailing the disposition of the comment.

If the final MTP/RTP differs significantly from the version that was initially made available for public comment, additional opportunity for public comment will be provided.

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AIR QUALITY CONSIDERATIONS

Air quality requirements are promoting the development of a more balanced transportation system. The Clean Air Act requires that urbanized areas meet National Ambient Air Quality Standards (NAAQS) set by the Environmental Protection Agency (EPA). The Tri-Cities Urbanized Area is considered to be in attainment by both the Department of Ecology and the Environmental Protection Agency. As such, the federal standards are not exceeded and no air quality improvement measures are required. However, air quality is considered as part of the project review process. Air quality episodes in the RTPO are generally attributed to windblown dust particulate matter (PM 10).

The sole air quality event to involve the metropolitan area occurred in the late 1980s. A portion of western Walla Walla County was designated as The Wallula Particulate Matter (PM10) Non-attainment Area (NAA). The eastern portion of the Tri-Cities Metropolitan Area was included in that NAA. The non-attainment status was the result of measurements of windborne dust. In 2004, diligent effort by the Washington State Department of Ecology (DOE) resulted in the development of a Serious Attainment Plan for the Wallula NAA.

DOE requested the Wallula NAA be re-designated as an attainment area in April 2005. The Federal Environmental Protection Agency approved the Plan in May 2005. The approval included an exclusion from regional transportation conformity analysis. Specific transportation projects in the Wallula NAA must still meet project-level conformity requirements.

AMERICANS WITH DISABILITIES ACT

The Americans With Disabilities Act (ADA) affects transit systems, public terminals for buses, trains, and airports, streets, and other public facilities. The act required many design standards to be rewritten to provide access to all individuals in public facilities. Since most all transportation facilities are public facilities, the ADA is an important component in the planning process.

2010 COORDINATED PUBLIC TRANSPORTATION – HUMAN SERVICES TRANSPORTATION PLAN

SAFETEA-LU requires the establishment of local coordinated plans for all human services transportation programs.

The requirement appears in the Rule on Metropolitan Planning, Section 450.306: Scope of the metropolitan transportation planning process;(g) The metropolitan transportation planning process should be consistent with the development of Coordinated Public Transit-Human Services Transportation Plans, as required by 49 U.S.C. 5310, 5316, and 5317.

From the onset, WSDOT delegated responsibility for the development of Human Service Transportation Plans (HSTP) to RTPOs.

BFCG updated the 2006 HSTP Plan in 2010 in concert with Ben Franklin Transit, Valley Transit, the Washington State Department of Transportation and other stakeholders. The plan identifies strategies and preferred alternatives for initiating or improving coordination among,

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2011-2032 Regional Transportation Plan or consolidation of, public, private, and non-profit providers that receive public funding for transportation of disadvantaged individuals-older adults, people with disabilities, human services agency clients, and others. The goal is a plan to best fulfill the federal expectations of a coordinated, cost-effective and efficient multi-provider transportation system for the transportation disadvantaged.

The 2010 Coordinated Public Transit-Human Services Transportation Plan for Benton, Franklin and Walla Walla County, and any subsequent Human Service Transportation Plan adopted prior to the next RTP update, are incorporated by reference into the 2011-2032 Regional Transportation Plan.

2010 REGIONAL BICYCLE AND PEDESTRIAN TRANSPORTATION PLAN

For the past 15 years, federal laws have supported the inclusion of pedestrian and bicycle facilities in transportation plans and projects and have supplied a consistent source of funding for these activities. This new policy direction was initially established through the ISTEA in 1991 and was strengthened in TEA-21and SAFETEA-LU. The federal law is currently contained primarily in 23 USC Section 217.

23 USC Section 217(g) mandates the following action for MPOs: "Bicyclists and pedestrians shall be given due consideration in the comprehensive transportation plans developed by each metropolitan planning organization...”

On the state level, the Growth Management Act requires GMA Transportation Plans/Elements to include a pedestrian and bicycle component that includes identified planned improvements for pedestrian and bicycle facilities and corridors.

The 2010 Regional Bicycle and Pedestrian Transportation Plan for Benton, Franklin and Walla Walla Counties and the Tri-Cities Urban Area helps to fulfill those requirements. The Plan discusses implementation and safety issues; RTPO member jurisdiction bicycle and pedestrian plans and policies; and includes collision data and project lists.

The 2010 Regional Bicycle and Pedestrian Transportation Plan and any subsequent Plan adopted prior to the next RTP update, are incorporated by reference into the 2011-2032 Regional Transportation Plan.

TRIBAL CONSULTATION

Under SAFETEA-LU, MPOs are required to consult with Native American tribes as part of their public involvement process in the development of all planning documents. Consultation means respectful, effective communication in a cooperative process that works toward a consensus, before a decision is made or an action is taken.

While there are no formal tribal lands in the MPO or RTPO, three tribal nations have traditional homelands in the BFCG three-county area. The Yakama Nation’s reservation is in Yakima County. The Confederated Tribes of the Umatilla Indian Reservation (Umatilla, Cayuse, Walla Walla) reservation is in Oregon, while the Nez Perce reservation is in Idaho.

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TRANSPORTATION SYSTEM SECURITY

SAFETEA-LU calls for the security of the transportation system to be a stand-alone planning factor, signaling an increase in importance from prior legislation, in which security was coupled with safety.

According to the Washington State Department of Transportation, Transportation System Security is “The use of operating and management policies and procedures to reduce the security vulnerabilities of a transportation system to the lowest practical level.” During a 2004 meeting with WSDOT, FHWA and FTA, three focus areas were specified for transportation system security: Identification of Evacuation Routes; Participation in Preparedness/Response Exercises; and Critical Facilities Assessment.

In the arena of security, the Richland/Kennewick/Pasco metropolitan area is a special case. Due to the proximity of the U.S. Department of Energy’s (DOE) Hanford Site; the Columbia Generating Station (a nuclear reactor owned and operated by Energy Northwest); and the Umatilla Chemical Depot and Chemical Agent Disposal Facility near Umatilla, Oregon, many security measures are already in place and to a greater degree than would normally exist in a metropolitan area.

Identification of Evacuation Routes The State of Washington has formally adopted the Incident Command System (ICS) as a template for managing incident response. Under ICS, evacuation plans are only developed for, or from, fixed facilities, such as the Umatilla Chemical Depot. In all other incidents, regardless of magnitude, evacuation-related decisions are the responsibility of the on-scene incident commander. That being the case, evacuation routes have been identified for three fixed facilities in the Tri-City area: the Energy Northwest reactor, the Hanford Site and the Umatilla Chemical Depot.

Preparedness/Response Exercises Due to the long-term presence of multiple potentially hazardous sites near the Tri-Cities, emergency preparedness exercises have a detailed and lengthy history in the area.

Radiation-Related Emergencies Radiation-related emergencies on the Hanford site are managed through the Radiological Emergency Preparedness (REP) program. Under REP, emergency plans have been developed to assure the health and safety of the people who live near and work at the facilities on the Hanford Site.

Benton County and Franklin County Emergency Management planners for the REP program help prepare plans and procedures for emergencies on the Hanford Site. REP planners coordinate with the Department of Energy and Energy Northwest to prepare for a radiological emergency. REP has been in place since 1982 and the DOE has been running preparedness exercises since 1990. Currently, both REP and DOE sponsor at least one exercise annually.

Chemical Weapons Emergencies Chemical weapons emergencies related to the Umatilla Chemical Depot are managed under the Chemical Stockpile Emergency Preparedness Program (CSEPP). CSEPP is a national program responsible for administration of the emergency preparedness process for

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2011-2032 Regional Transportation Plan communities located near chemical stockpiles and the Army’s chemical munitions storage depots. CSEPP began in October 1989 after passage of Public Law 99-145, which mandated the destruction of certain types of chemical warfare agents throughout the United States. Like the REP program, CSEPP holds annual preparedness exercises.

Benton County Emergency Management planners are involved in the CSEPP planning process. Additionally, they, along with Benton County first responders such as police, fire departments and emergency services are involved in CSEPP exercises.

Other Preparations In addition to the hazard-specific planning and preparedness efforts described above, there are other preparedness efforts in the Tri-Cities.

REP, DOE and CSEPP all participate in various additional drills and training sessions with local hospitals, fire districts and other first responders.

The Tri-County Mass Casualty Incident Plan (MCIP) is an effort by Benton, Franklin and Walla Walla counties to develop a coordinated program for response to hazardous materials emergencies. Like REP, DOE and CSEPP, the MCIP planners execute at least one preparedness exercise per year.

Section 38.52.030 of the Revised Code of Washington mandates Comprehensive Emergency Management Plans for each county in the state. These plans analyze natural, technological or human caused hazards that could affect the county, and include procedures to be used during emergencies for coordinating local resources.

There is also a Local Emergency Planning Committee, comprised of first responders and relevant agencies, but it also includes representatives of local industry and business communities to involve them in the preparedness dialogue and emergency planning process.

Critical Facilities Assessment The third element mentioned under the security component is assessment of critical transportation facilities. This assessment has been completed by the Washington State Department of Transportation.

WSDOT has three priorities in dealing with potential threats to the transportation system:  Minimize the risk of injury to the public, WSDOT employees and staff.  Protect the infrastructure and support facilities.  In the event of an incident, restore safe customer service as soon as possible.

WSDOT has been working closely with the Washington State Patrol and other local officials to monitor the transportation system. They have increased their presence, inspections and monitoring of highways, bridges and ferries. In addition, they are training their employees to serve as the eyes and ears of the system, to look for unusual or suspicious activity.

In all three areas, it is clear that this work, while in some instances ongoing, has been completed. In many cases ongoing processes have been in place for years. Roles, responsibilities and relationships are long established. The Benton-Franklin Council of Governments believes that existing plans for these three focus areas of transportation system

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ENVIRONMENTAL MITIGATION

Section 450.322(f)(7) of the (SAFETEA-LU) Rule on Metropolitan Transportation Planning states that: (f) “The metropolitan transportation plan shall, at a minimum, include: (7) A discussion of potential environmental mitigation activities and potential areas to carry out these activities, including activities that may have the greatest potential to restore and maintain the environmental functions affected by the metropolitan transportation plan. The discussion shall be developed in consultation with Federal, State, and Tribal land management, wildlife, and regulatory agencies. The MPO may establish reasonable timeframes for performing this consultation.”

In 1991, Washington established the Growth Management Act (GMA), which imposes certain requirements on counties and cities planning under GMA. Among those is the development and adoption of a Comprehensive Plan. Portions of the GMA mandate classification of lands in such Plans, which in turn regulate development and land uses on those designations.

Several relevant sections of the GMA include:  Revised Code of Washington (RCW) Section 36.70A.050: Guidelines to classify agriculture, forest, and mineral lands and critical areas;  RCW 36.70A.060: Natural resource lands and critical areas — Development regulations;  RCW 36.70A.160: Identification of open space corridors — Purchase authorized;  RCW 36.70A.165: Property designated as greenbelt or open space — Not subject to adverse possession;  RCW 36.70A.170: Natural resource lands and critical areas — Designations;  RCW 36.70A.172: Critical areas — Designation and protection — Best available science to be used;  RCW 36.70A.175: Wetlands to be delineated in accordance with manual.

GMA mandates are relevant because they define mandated planning responsibilities of cities and counties in identifying, monitoring and maintaining resource lands within their legal purview. Existing statues require Washington cities and counties to describe critical resource lands, wetlands, wildlife corridors and riparian areas in greater detail than envisioned in SAFETEA-LU. Consideration of those resources is mandated in all elements of planning, including transportation planning. Since enacting the GMA in 1991, these elements have become thoroughly integrated into the planning process at both the policy and implementation levels.

The Growth Management Act imposes sufficient requirements on the cities and counties in the Tri-Cities Metropolitan Area to fulfill the planning responsibilities outlined in 450.322(f)(7). The requirements of the section are met and exceeded by member jurisdictions and for the Benton-Franklin Council of Governments, through the MTP, to attempt to achieve more would be duplicating that effort.

An additional part of the GMA process involves certification of member jurisdictions’ GMA Comprehensive plans, and transportation elements of those plans, for conformity with the transportation requirements of the Act. The Benton-Franklin Council of Governments, as the

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2011-2032 Regional Transportation Plan

Regional Transportation Planning Organization for Benton, Franklin and Walla Walla Counties has this responsibility. The certification checklist used in the review process calls for specific evaluation of a plan’s recognition of its effect on the environment.

GREENHOUSE GASES/CLIMATE CHANGE (Federal)

In July 2008 the Federal Highway Administration issued its Final Report Integrating Climate Change into the Transportation Planning Process. To quote from that document:

“Several federal statutes and regulations govern the transportation planning process. The text of these documents provides some opportunities to link climate change considerations with the planning process. These documents set out the requirements for undertaking transportation planning, and include statements regarding the scope of planning processes, required procedures, and required content for metropolitan and statewide transportation planning under both FHWA and FTA. While there are no specific requirements to directly address climate change, recent revisions to legislation have further incorporated energy and environmental considerations. These revisions offer greater opportunities for MPOs and state DOTs to integrate climate change considerations within their planning processes.”

The issue of federal initiatives concerning greenhouse gases and climate change will be discussed in greater detail in Chapter Two.

LIVABILITY/SUSTAINABILITY

Like the topics of greenhouse gases and climate change, there are no specific federal requirements to directly address livability and sustainability at the MPO level. There has, however, been some USDOT and FHWA activity in this area.

The USDOT along with the Department of Housing and Urban Development and the Environmental Protection Agency have formed the Partnership for Sustainable Communities. Through the Partnership, the three agencies are coordinating investments and aligning policies to support communities that want to give Americans more housing choices, make transportation systems more efficient and reliable, reinforce existing investments, and support vibrant and healthy neighborhoods that attract businesses.

FHWA has issued the Livability in Transportation Guidebook. The Livability in Transportation Guidebook’s primary purpose is to illustrate how livability principles have been successfully incorporated into transportation planning, programming, and project design. It is intended to be an overview on the importance of livability in transportation, to encourage transportation practitioners to think more broadly about project goals, enlist more partners, and develop more integrated solutions that support community livability.

The issue of federal initiatives concerning livability and sustainability be discussed in greater detail in Chapter Two.

OBJECTIVES-DRIVEN PERFORMANCE-BASED PLANNING

Objectives-driven performance-based planning integrates operations planning into the planning process.

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At the Federal level, Planning for Operations is a joint effort between the FHWA Office of Operations, Office of Planning and FTA's Office of Planning, and was developed to promote multimodal planning practices that support transportation system management and operations. In order to link operational services into the transportation planning and programming process, transportation planners and operators should have a common understanding of the mobility, safety, and efficiency benefits of linking planning and operations.

Planning for Operations includes three important aspects:  Regional transportation operations collaboration and coordination activity that facilitates Regional Transportation Systems Management and Operations,  Management and operations considerations within the context of the ongoing regional transportation planning and investment process, and  The opportunities for linkage between regional operations collaboration and regional planning.

This topic will be more fully discussed in Chapter Two.

REGIONAL TRANSPORTATION PLANNING ORGANIZATION (RTPO)

The 1990 Legislature authorized regional transportation planning as part of Washington State’s Growth Management Act. The Act created a formal mechanism for local governments and the state to coordinate planning for regional transportation facilities and services. Furthermore, where an MPO exists, the RTPO is required to be the same organization. Therefore, in 1991, in response to this state law, the local governments designated the BFCG as the responsible agency to carry out the regional planning responsibilities of the Regional Transportation Planning Organization (RTPO).

The Benton – Franklin – Walla Walla RTPO is a transportation planning agency encompassing all of Benton, Franklin, and Walla Walla counties (Figure 1-1). The RTPO was developed to comply with RCW 36.70A, the Growth Management Act (GMA), and RCW 47.80, which authorized creation of RTPOs formed through voluntary association of local governments. (See Appendix B for details.)

Per RCW 47.80.023, the duties of an RTPO are:

 Prepare and periodically update a transportation strategy for the region.

 Prepare a Regional Transportation Plan that is consistent with countywide planning policies, local comprehensive plans, and state transportation plans.

 Certify that the transportation elements of local comprehensive plans reflect the region’s guidelines and principles for transportation planning; are consistent with the adopted Regional Transportation Plan; and conform with the requirements of the state Growth Management Act.

 Certify that countywide planning policies and the Regional Transportation Plan are consistent.

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2011-2032 Regional Transportation Plan

 Develop a six-year Regional Transportation Improvement Program, which proposes regionally significant transportation projects and programs and transportation demand management strategies.

 Designate a lead planning agency to coordinate preparation of the Regional Transportation Plan and carry out the other responsibilities of the organization.

 Review level of service methodologies used by cities and counties to promote a consistent regional evaluation of transportation facilities and corridors.

 Work with cities, counties, transit agencies, WSDOT, and others to develop level of service standards or alternative transportation performance measures.

As lead planning agency, the BFCG administers and supplies staff support for the RTPO. The BFCG transportation planning staff receives direction from the MPO/RTPO Technical Advisory Committee (TAC). The TAC forwards recommendations to the Policy Advisory Committee (PAC), which forwards action items to the BFCG Board.

STATE REQUIREMENTS FOR A REGIONAL TRANSPORTATION PLAN (RTP)

State requirements for regional transportation plans are addressed in RCW 47.80. The following is a brief summary of the state’s planning requirements for regional transportation plans:

Regional transportation plans should:  Be based on a least cost planning methodology that identifies the most cost-effective facilities, services, and programs;  Identify existing or planned transportation facilities, services, and programs that should function as an integrated regional transportation system;  Establish level of service standards for state highways with the exception of Highways of Statewide Significance (HSS);  Include a financial plan demonstrating how the regional transportation plan can be implemented;  Assess regional development patterns, capital investment, and other measures necessary to ensure preservation of the regional transportation system and make the most efficient use of existing transportation facilities to relieve vehicular congestion and maximize mobility of people and goods;  Set forth a proposed regional transportation approach to guide development of the integrated, multi-modal regional system; and  Where appropriate, set forth the relationship of high capacity transportation providers and other public transit providers with regard to responsibility for, and coordination between, services and facilities.

The RTPO shall review the regional transportation plan biennially for currency and forward the adopted plan along with documentation of the biennial review to WSDOT.

All transportation projects, programs, and transportation demand management measures within the region that have an impact upon regional facilities or services must be consistent with the RTP and with the adopted regional growth and transportation strategies.

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In order to ensure statewide consistency in the regional transportation planning process, the state Department of Transportation and the RTPO shall identify and jointly plan improvements and strategies within those corridors important to moving people and goods on a regional or statewide basis.

The regional transportation plan must be consistent with countywide planning policies, with county, city, and town comprehensive plans, and state transportation plans.

JURISDICTION COORDINATION

RTPO member jurisdictions conduct individual plan development based on internal schedules, however, the Growth Management Act requires that transportation elements in local comprehensive plans (1) conform to the requirements in the Growth Management Act for transportation elements and (2) are consistent with the Regional Transportation Plan. RTPOs, including the Benton-Franklin Council of Governments, must certify the plans for conformity and consistency. This relationship between RTPOs and member jurisdictions creates a formal mechanism to coordinate regional transportation facilities.

THE WASHINGTON TRANSPORTATION PLAN/REGIONAL TRANSPORTATION PLAN RELATIONSHIP

The federal government requires a continuing, cooperative and comprehensive planning process, mandates cooperation and coordination between the state and the metropolitan planning organizations, and establishes over-arching policy goals that integrate planning. The eight federal policy goals in SAFETEA-LU are listed on page 1-8.

WTP 2030 was developed in response to state mandates, and the 2011-2032 MTP/RTP was developed to respond to both federal and state mandates. The six statewide transportation policy goals listed above and the federal goals in SAFETEA-LU, which are a basis for the development of both documents, are compatible. The WTP was developed through a collaborative process in partnership with Regional Transportation Planning Organizations and the public. The goals, policies, and action strategies presented in Chapter Three of this RTP were also developed through a collaborative, visionary, long-range transportation planning process.

The WTP and the RTP have missions of preserving, maintaining, and developing a balanced, multi-modal, inter-modal transportation system that provides access and mobility for people, goods, and services in a safe, convenient, and energy efficient manner; minimizes impacts upon the environment; is coordinated through multi-jurisdictional efforts; is compatible with adjacent land uses; facilitates planned economic growth; maintains livability and community values; and promotes health and fitness.

Washington State’s Growth Management Act linked city and county comprehensive plans with regional plans. The WTP now ties regional transportation plans with statewide planning.

THE WASHINGTON TRANSPORTATION PLAN (WTP)

The Washington Transportation Plan 2030 (WTP 2030), adopted in December 2010, is the overarching state policy framework intended to provide policy guidance and

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2011-2032 Regional Transportation Plan recommendations across all transportation modes and regions in the state. The Washington State Transportation Commission developed WTP 2030 as a comprehensive and balanced statewide transportation policy plan that reflects the multifaceted needs of the state’s transportation system.

The Plan is grounded in three foundational themes, which serve as the base for the development of WTP 2030, and five strategic drivers which are the influences that reflect the political, policy, and economic environment within which the Plan was developed. These are listed below.

Foundational Themes  Washington faces a structural transportation funding problem and additional revenue is essential. Statewide transportation system needs continue to grow while revenues are declining. As a result, the ability to effectively maintain and operate the statewide transportation system is at risk.  The state’s transportation system needs to work as an integrated network, effectively connecting across modes and jurisdictions. A fundamental goal of the statewide transportation system over the next 20 years must be to work towards achieving system connectivity and integration.  Preservation and maintenance of the existing transportation system is the most critical need. A safe and effective transportation system is fundamental to a sustainable economy and livable communities and so must be made a top priority.

Strategic Drivers  Transportation policy should support and reinforce other state policy objectives.  The relationship between land use and transportation is key.  There are significant differences across regions and one size does not fit all.  It is critical to educate, inform, and reach out to the public.  Continue the evolution to performance-based programs.

The WTP 2030 Policy Plan is organized around the six statewide transportation policy goals listed in RCW 47.04.280. Those goals are:  Economic Vitality: To promote and develop transportation systems that stimulate, support, and enhance the movement of people and goods to ensure a prosperous economy.  Preservation: To maintain, preserve, and extend the life and utility of prior investments in transportation systems and services.  Safety: To provide for and improve the safety and security of transportation customers and the transportation system.  Mobility: To improve the predictable movement of goods and people throughout Washington State.  Environment: To enhance Washington’s quality of life through transportation investments that promote energy conservation, enhance healthy communities, and protect the environment.  Stewardship: To continuously improve the quality, effectiveness, and efficiency of the transportation system.

In the context of all of the above, WTP 2030 contains a detailed examination of transportation funding followed by a very detailed presentation of strategies and recommended actions based on the transportation policy goals.

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WASHINGTON STATE’S STRATEGIC HIGHWAY SAFETY PLAN: TARGET ZERO

The federal Safe, Accountable, Flexible, Efficient, Transportation Equity Act – A Legacy for Users (SAFETEA-LU), 23 USC 148 requires each state have a Strategic Highway Safety Plan. Target Zero meets those federal requirements for Washington State.

The Strategic Highway Safety Plan: Target Zero sets forth a vision to reduce traffic fatalities and serious injuries to zero by the year 2030. It identifies Washington State’s traffic safety needs, helping to guide investments to achieve significant reductions in traffic fatalities and serious injuries on all public roads. The partners who have developed Washington State’s Strategic Highway Safety Plan intend for it to coordinate their safety programs, align their goals and objectives, and leverage their collective resources.

Target Zero provides a comprehensive framework of specific goals, objectives, and strategies for reducing traffic fatalities and serious injuries. It serves as a statewide strategic highway safety plan and will be incorporated into the plans and programs of key traffic safety agencies. The plan directs the commitment of agency resources and funding, and seeks to support agencies, groups, and individuals working together to implement Target Zero strategies.

Target Zero contains four levels of priorities based on the percentage of traffic fatalities associated each factor.

Priority One has the three areas - impairment, run-off-the-road collisions, and speeding - associated with the largest number of fatalities in the state. Each of these areas was a factor in 40% or more of the traffic fatalities between 2006 and 2008.

Each area of Priority Two, which includes young drivers, distracted drivers, unrestrained vehicle occupants, and intersection-related crashes, accounted for somewhere between 21% and 38% of traffic fatalities. Traffic Data Systems, while not a cause of fatalities, is considered a Level Two priority because of the potential for better data to improve our analysis of traffic fatalities and serious injuries.

Priority Three areas were each involved in somewhere between 12% and 20% of fatalities between 2006 and 2008. They include unlicensed drivers, opposite direction multivehicle collisions, motorcyclists, pedestrians, and heavy trucks. Emergency Medical Services is also a Level Three priority area.

Priority Four includes areas that each involved less than 10% of all fatalities during this time, including older drivers, drowsy drivers, bicyclists, work zones, vehicle-train collisions, and school-bus-related collisions.

Target Zero proposes strategies for further reducing traffic fatalities and serious injuries in Washington. It shows how to improve roadway design to better accommodate pedestrians, bicyclists, motorcyclists; enhance emergency medical capabilities to increase survivability; use education to decrease the likelihood of dangerous behaviors; fund enforcement patrols at locations where dangerous behaviors are likely to occur; and how to improve traffic data collection systems to enhance our ability to measure the effects of these strategies.

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GREENHOUSE GASES/CLIMATE CHANGE (State)

Governor Gregoire issued Executive Order 07-02, Washington Climate Change Challenge, in February 2007. This order declared the state’s commitment to address climate change by reducing greenhouse gas (GHG) emissions. An outcome of the Executive Order is RCW 70.235.020, enacted in 2008, which establishes statewide GHG emissions reduction limits. Those limits are:  Return to 1990 emissions levels by January 1, 2020;  Reduce to 25 percent below 1990 emissions levels by January 1, 2035; and  Reduce to 50 percent below 1990 emissions levels by January 1, 2050.

Also enacted in 2008 was RCW 47.01.440 which establishes a vehicle miles traveled reduction goal and benchmarks for Washington State. Those benchmarks are:  Decrease the annual per capita vehicle miles traveled by eighteen percent by 2020;  Decrease the annual per capita vehicle miles traveled by thirty percent by 2035; and  Decrease the annual per capita vehicle miles traveled by fifty percent by 2050.

At this time, the limits, goals and benchmarks listed above are at the statewide level, and not directly applicable at the local or regional level.

In May 2009, Governor Gregoire signed Executive Order 09-05: Washington’s Leadership on Climate Change.

Section 2(a) of the Executive Order directed WSDOT to:  Estimate current and future statewide levels of VMT,  Evaluate potential changes to the VMT benchmarks established in RCW 47.01.440 as appropriate to address low- or no-emission vehicles, and  Develop additional strategies to reduce GHG emissions from the transportation sector.

Section 2(b) directed WSDOT to work with the state’s four largest RTPOs: the Puget Sound Regional Council, Spokane Regional Transportation Council, Southwest Washington Regional Transportation Council and Thurston Regional Planning Council to develop practical approaches for reducing GHG emissions at the regional level.

Legislative efforts at refining Washington State’s methodology for addressing greenhouse gas emissions are ongoing. Potential solutions at the local and regional level include amendments to the Growth Management Act. The Benton-Franklin-Walla Walla RTPO will implement applicable measures as they emerge.

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CHAPTER TWO - REGIONAL TRANSPORTATION ISSUES & CONCERNS

Providing effective transportation programs and improvements for the regional transportation system requires identification and evaluation of the broad spectrum of transportation problems and issues. This includes analysis of existing plans and regional resource and facility documents as well as discussion and review by the Technical Advisory Committee and public comments. Multiple regional and metropolitan transportation issues have been identified and are referenced in Chapter Two.

LAND USE AND TRANSPORTATION

The successful integration of land use planning with transportation planning is an important element in building a livable community. Land use is recognized as a basis for making significant public investment decisions, including those associated with transportation. Transportation is a public service with demand determined by the physical separation of activities - in other words - the arrangement of land uses around the natural environment. Land use policies and transportation policies need to be complementary with one another if they are to work toward a single unified direction. To accomplish this, the community and decision-makers need to have an understanding of the procedures and purposes underlying transportation and land use planning.

The Growth Management Act (GMA) assists in linking land use and transportation planning. This process is also supported by the Benton-Franklin Council of Governments, which certifies local transportation elements for consistency and conformity with the GMA. One of the conformity requirements is to certify transportation elements are consistent with the land use element.

The Tri-City and Walla Walla/College Place urban areas are a mixture of land uses required to meet the residential, commercial, industrial, and open space needs of the individual cities. A discussion of varying land use types in the Tri-Cities by Traffic Analysis Zone, their current levels, and forecasts for the future can be found in the chapter six with detailed tables located in Appendix E. During the 2003 Walla Walla/College Place travel demand model effort, a similar effort was completed, though that information is largely dated at this time.

Lands outside the two urban areas are primarily classified as either agricultural or shrub- steppe. Though population levels are low in these areas, the activities in rural portions throughout the three-county region have profound impacts upon the transportation facilities throughout the region. The proximity and condition of links to transportation facilities will continue to remain of highest importance in the rural areas.

PRESERVATION AND MAINTENANCE

Preservation encompasses preventative and major maintenance and replacement of the assets that make up the regional transportation system. The preservation and maintenance of the existing transportation system is critical to the continued movement of people, goods, and services. Preservation and maintenance must compete with immediate and forecast needs for limited available funds.

Revenues to local governments that are directed toward transportation maintenance are inadequate. Local governments, particularly the small ones, find it difficult to transfer general revenues to maintenance when those funds are needed elsewhere. Consequently,

Benton-Franklin Council of Governments Page 2-1 2011-2032 Regional Transportation Plan long-term maintenance, such as pavement management, is being deferred, and transportation systems are deteriorating.

SAFETY DEFICIENCIES

Physical deficiencies of the transportation system often translate into safety concerns. Many rural county roads were constructed decades ago and have inadequate horizontal and vertical alignments established long ago. Some roads have inadequate shoulders or none at all and lane widths at times are substandard. Roadside guardrails are frequently substandard or nonexistent.

Additional issues include: Bridges which are often narrower than approach roadways; Railroad crossings often lack adequate safety warning devices; and Pedestrian-vehicle and bicycle- vehicle conflicts in populated areas. Although regional jurisdictions are aware of safety deficiencies of their transportation systems, obtaining necessary funds to implement remedial measures is an on-going problem.

Figure 2-1 shows fatality and injury rates per 100 million vehicle-miles traveled (100M VMT) for Benton, Franklin and Walla Walla Counties in 2001, 2003, 2006 and 2008, based on data from the Washington Traffic Safety Commission and the Washington State Department of Transportation. The metric of 100 million vehicle-miles traveled is a measure of exposure to the risks posed by driving in traffic commonly used by transportation safety professionals to control for many of the variables involved in traffic collisions.

Table 2-1 shows the number of fatalities and serious injuries in RTPO member counties for the same years.

Figure 2-1: Traffic Fatalities and Serious Injuries per 100M VMT in RTPO Counties

Benton - Franklin - Walla Walla Counties: Traffic Fatalities and Serious Injuries - Rate per 100M VMT 8% 7% 6% 5% 4% 3% 2% 1% 0% 2001 2003 2006 2008 Benton County ‐ Fatalities 1.53% 0.65% 0.96% 0.22% Benton County ‐ Serious Injuries 6.90% 6.55% 3.70% 3.14% Franklin County ‐ Fatalities 1.91% 0.60% 0.76% 1.82% Franklin County ‐ Serious Injuries 6.05% 5.73% 4.11% 4.84% Walla Walla County ‐ Fatalities 1.83% 1.86% 1.33% 1.35% Walla Walla County ‐ Serious 7.34% 3.02% 7.98% 3.60% Injuries

Source: Washington Traffic Safety Commission Traffic Research and Data Analysis Center

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Table 2-1: Traffic Fatalities and Serious Injuries in RTPO Counties Walla Walla Benton Benton Franklin Franklin Walla Walla County County County County County County Serious Serious Serious Year Fatalities Injuries Fatalities Injuries Fatalities Injuries

2001 20 90 12 38 8 32 2003 9 90 4 38 8 13 2006 13 50 5 27 6 36 2008 3 43 12 32 6 16 Source: Washington Traffic Safety Commission Traffic Research and Data Analysis Center

AUTOMOBILE DEPENDENCE

Regionally, our highways generally show increased usage. Table 2-2 contains 10-year traffic volume changes for 15 sites on the state highway system in the RTPO. As observed, volumes have increased at a higher rate in urban locations than rural sites.

Table 2-2: 2000-2010 Traffic Volumes on State Highways 2000-2005 2005-2010 ADT ADT ADT LOCATION Annual % Annual % 2000 2005 2010 Change Change

SR 82 - Prosser Vicinity - West of Gap Rd. 16,000 18,000 19,000 2.5% 1.1% SR 14 - Paterson - West of SR 221 2,500 2,300 2,300 -1.6% 0.0% SR 82 - South of Kennewick - West of Coffin Rd. 14,000 15,000 17,000 1.4% 2.7% SR 182 - Columbia River Bridge 30,000 44,000 56,000 9.3% 5.5% SR 224 - West Richland - East of Grosscup Blvd. 9,000 11,000 9,600 4.4% -2.5% SR 240 - Yakima River Causeway - North of Columbia Park Tr. 52,000 54,000 67,000 0.8% 4.8% SR 395 - Blue Bridge 49,000 57,000 57,000 3.3% 0.0% SR 395 - North of Pasco - South of Vineyard Dr. 12,000 13,000 15,000 1.7% 3.1% SR 17 - Mesa Vicinity - North of R 170 6,200 4,200 4,400 -6.5% 1.0% SR 260 - East of Connell - West of SR 395 South bound ramp 3,400 2,900 3,000 -2.9% 0.7% SR 124 - East of Burbank - East of SR 12 4,200 5,400 5,500 5.7% 0.4% SR 12 - East of SR 730 5,700 6,200 6,500 1.8% 1.0% SR 12 - In Walla Walla - East of SR 125/Pine St. 7,800 7,900 11,000 0.3% 7.8% SR 125 - Oregon State Line 14,000 15,000 15,000 1.4% 0.0% SR 12 - East of Waitsburg - East of SR 124 /Coppei Ave. 5,200 5,200 5,200 0.0% 0.0% SR 221 - South of Sellards Rd. (Prosser) 1,800 1,900 2,100 1.1% 2.1% SR 24 - Vernita Bridge 3,200 3,500 3,900 1.9% 2.3% Source: WSDOT Annual Traffic Reports

Figure 2-2 shows the locations of the traffic counts listed in Table 2-2.

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Figure 2-2 Selected Regional WSDOT Traffic Count Sites

Figure 2-3 (on the following page) shows Average Daily Traffic flows for street and highway segments in the Tri-Cities. Clearly, the SR 240 Causeway is the most heavily traveled road segment in the metropolitan area. The figure also reflects the effect of the Hanford commute on the SR 240 Bypass and George Washington Way in Richland.

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THE HANFORD COMMUTE

For over sixty years the primary employment for the Tri-Cities area has been on the Hanford Nuclear Reservation or at related sites in Richland. Most of those workers live in the Tri-Cities area and commute through Richland to their job sites. The Washington State University campus, the Pacific Northwest National Laboratory (PNNL), multiple Hanford contractors and the Port of Benton facilities in north Richland add to the congestion.

As morning and evening commuter congestion increased, the ability for east-west traffic to cross the SR 240/Stevens Drive corridor and Richland’s George Washington Way decreased. Installation of numerous traffic signals to accommodate cross traffic movements further impacted the north-south commute. The twice daily commutes strained those north-south corridors to capacity

Today, the Hanford Site is the largest employer in the region with an estimated 2010 work force of 18,000. Employment in the Area is forecast to be 14,500 in 2020 and drop to 11,500 by 2030, for a net decrease of 6,500 over the two decades of the Plan. A second employer with notable impacts on the commute is PNNL. Employment at their campus in north Richland is approximately 4,600 persons, with forecast growth to 4,900 in 2020 and to 5,100 on 2030, for a net increase of 500 employees.

The work commute requires most of those employees to travel through the City of Richland by way of SR 240/Stevens Drive (Bypass Highway) or George Washington Way. Since 1996, BFCG has surveyed morning peak traffic on these two corridors and now has data covering 16 years. The split between single occupant vehicles and carpools or vanpools (two or more persons) has consistently been in the range of 90 percent/10 percent.

In 2002 WSDOT completed the expansion of the SR 240 Richland Bypass from four to six lanes. Similarly, the City of Richland made major capacity improvements on Stevens Drive north of SR 240. In June 2007, WSDOT completed construction of The SR 240 – Tri-Cities Additional Lanes project which resulted in three lanes in each direction on SR 240 from Stevens Drive in north Richland to Columbia Center Boulevard in Kennewick.

Additionally, a new auxiliary lane was added in each direction from I-182, across new Yakima River Bridges, to the Richland "Y." The project included improvements at the I-182/SR 240 interchange and the Richland "Y" interchange. These much needed capacity improvements have helped alleviate congestion during the daily commute.

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Figure 2-4 summarizes results of the BFCG windshield survey of AM Peak traffic along significant Hanford commute routes.

Figure 2-4: 1999-2010 Hanford SOV/HOV Percentages Hanford SOV/HOV

100% 90% 80% 70% 60%

Hour 50% 40% 30%

Peak 20% 10% 0% SOV HOV SOV HOV SOV HOV SR 240 WB S/O Stevens Dr. NB S/O Route 4S NB S/O Energy Duportail Spengler Northwest Rd. 1999 92.3% 7.7% 91.4% 8.6% 88.1% 11.9% 2003 93.6% 6.4% 94.2% 5.8% 88.3% 11.70% 2010 92.4% 7.6% 95.2% 4.8% 86.3% 13.7%

Source: BFCG Annual Traffic Survey Data

HANFORD TANK WASTE REMEDIATION PROJECT

A primary mission on the Hanford Nuclear Reservation is remediation of millions of gallons of radioactive wastes which have been stored in deteriorating underground storage tanks since the Manhattan Project in World War II. Upon completion of construction, a vitrification plant will process those wastes from liquid to a solid state (glass logs) for permanent storage. Construction began in 2002. Actual waste processing is slated to begin in 2019. The project has not been immune to federal budget cuts or escalated construction costs.

While this project positively impacted the local economy, there were negative impacts to the Hanford commute routes. At the outset, the construction workers had an early shift start, which took them through Richland before the balance of the morning commute. However, their return commute coincided with others and increased that congestion.

In January 2011, 226 vans from the Ben Franklin Transit vanpool program had Hanford-related destinations: 121 vanpool throughout the area, and 105 vans at the vitrification plant construction site.

COMMUTE TRIP REDUCTION

Washington State laws relating to Commute Trip Reduction (CTR) were first adopted in 1991 and incorporated in the Washington Clean Air Act as RCW 70.94.521. The intent of the CTR law is to reduce automobile-related air pollution, traffic congestion, and energy use through employer-based programs that encourage the use of alternatives to single-occupant vehicle travel during the peak hour commute.

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At the onset of the CTR program, a 28-member CTR Task Force was appointed by the Governor and given the responsibility to evaluate the program and report any recommendations to the Legislature each biennium. In December 2005 the Task Force submitted a proposal recommending the CTR program be continued but modifications be made to make it more effective. The CTR Task Force had a sunset of July 1, 2006. It was replaced by a 15-member CTR Board and the sunset date eliminated.

The Governor signed the CTR Efficiency Act in March 2006 incorporating Task Force recommended modifications to the program. The Washington Administrative Code (WAC) rules were completed in March 2007.

From 1991 until 2002 inclusion in the program was based on population. In 2003 the focus shifted and congestion, “one hundred person hours of delay”, became the criteria. Delay data from 2003 indicated three locations in the Tri-Cities Urban Growth Area exceeded the limit.

The technical method to calculate delay begins by collecting data on hourly volumes by direction and segment of state highway as part of the federally mandated Highway Performance Monitoring System (HPMS). These volumes are evaluated against the estimated capacity of that highway segment. A series of calculations are performed to determine vehicle delay.

WSDOT performed their delay analysis again in 2005 and determined one segment of the HPMS system in the metropolitan area exceeded the delay threshold. That segment was on U.S. 395 on the south end of the Blue Bridge in Kennewick.

RCW 70.94.527(12), an outcome of the CTR Efficiency Act of 2006, provided a two-year exemption for urban growth areas that have not previously implemented a CTR program and for which the state had funded a project to address the deficiency. WSDOT granted the exemption to the Tri-Cities because the one highway segment that exceeded the one hundred person hours of delay threshold was within the U.S. 395 to SR 240 Interchange Project.

Additional changes to the 2006 CTR Program are:  Shifted focus from the ten most populated counties to those urban growth areas that experience a measured degree of congestion along highway corridors.  Increased planning coordination among local, regional and state levels of government.  Employers goals may vary based on local and regional goals.  Worksite programs reviewed every two years (previously required every year).  Two year exemption dates now specific to the Tri-Cities urban growth area (Benton and Franklin Counties and the cities of Kennewick, Richland, West Richland and Pasco).

In 2009, an extension to the 2007 exemption for the Tri-Cities was granted as part of the state’s adopted 2009-2011 transportation budget. The reason for the extension was that the U.S. 395 to SR 240 Interchange Project had not been completed. At that time, it was stated that once the project was complete, delay data and performance of the HPMS system would be reviewed to determine whether implementation of a CTR program would be required.

A 2010 review of HPMS data showed the deficiency identified in 2005 had been successfully addressed, however, a segment in the vicinity of the SR 240/SR 224 intersection on the west edge of Richland exceeded the one hundred person hours of delay threshold. In a move away

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2011-2032 Regional Transportation Plan from a technical exemption, in March 2011 the Commute Trip Reduction (CTR) Board adopted two policy directives which had the effect of again exempting the urban growth areas in the Tri-Cities from all requirements to adopt and implement CTR plans and ordinances for major employers until at least 2013.

The first directive stated all new areas should be on the same planning cycle as the rest of the program, and if additional funding is provided to the state for CTR, the Tri-Cities would be required to begin developing a CTR plan in 2013. The second directive referenced the CTR Board’s funding policy that additional funding is required for new cities and counties entering the CTR program, existing funds will not be diverted for that purpose and additional funding from the legislature would be necessary to support program implementation costs for new areas .

It has yet to be determined whether the Tri-Cities metropolitan area and BFCG, as an RTPO, will be required to plan under Commute Trip Reduction.

RIDESHARING

Ridesharing remains an underutilized resource for reducing congestion, particularly along the Hanford commute in the Tri-Cities. Since the U.S. Government allows private vehicles on the reservation, people opt to use their single occupancy vehicles. Despite the allure of the single occupancy vehicle, ridesharing is still a viable way of reducing congestion for the Hanford bound commuters, particularly in view of escalated fuel costs.

In 2010, in addition to the 226 vans going to the Hanford site, Ben Franklin Transit has 68 vans traveling to other areas of the mid-Columbia. Umatilla, Oregon, site of the Umatilla Chemical Depot (25 vans), and Connell, site of the Coyote Ridge Corrections Center (13 vans) the primary destinations. In addition to operating the vanpool program, Ben Franklin Transit, through Ride Share on Line, provides ride-matching services for individuals seeking private vanpools and carpools. A more detailed discussion of the BFT vanpool program is in Chapter Four.

REGIONAL INTERCITY TRANSIT

The Grape Line

In 2004 Greyhound Bus Lines terminated bus service between Walla Walla and the Tri-Cities. Additionally, multiple bus stations on Greyhound routes in the RTPO region were eliminated. On the route between Pasco and Yakima, stops at Richland and Prosser in Benton County, and Grandview, Toppenish and Wapato in Yakima County were removed. The only station retained on the route is in Sunnyside. Also in the three-county area, on the route between Pasco and Moses Lake, the station in Connell was eliminated.

In November 2007, intercity bus service between Walla Walla and the Tri-Cities was restored with the Travel Washington Grape Line. A partnership between WSDOT, Greyhound and Central Washington Airporter, the service provider, the Grape Line was the first route in the nation to be funded through a Federal Transit Administration (FTA) pilot program that matches private sector investments with grant money. Subsequently, Central Washington Airporter was awarded a new contract in July 2009.

Beginning in late 2007, WSDOT data shows Grape Line ridership in 2008 and 2009 was nearly

Benton-Franklin Council of Governments Page 2-9 2011-2032 Regional Transportation Plan identical, with 6,113 and 6,112 riders respectively. Ridership increased by 22 percent, to 7,435 during 2010. WSDOT is planning on adding passenger shelters and enhanced signage at all passenger stops.

Transit service between Walla Walla and the Tri-Cities is a much needed addition to the regional transportation system in the RTPO. Restoration of the bus stations eliminated by Greyhound would help as well.

PASSENGER RAIL IN EASTERN WASHINGTON

The East-West Passenger Rail Feasibility Study: A Preliminary Analysis of Spokane-Seattle Amtrak Service, was completed in 2001 (HDR Engineering for WSDOT). The purpose of the study was to provide policymakers and the public with information regarding the potential for new daytime passenger rail service between the communities of eastern and western Washington. The study presented a preliminary assessment of the feasibility of new service along one of Washington's three cross-state rail corridors—the Stampede Pass route, connecting Seattle, the Tri-Cities, and Spokane.

The study concluded that introduction of daylight passenger rail service along the Stampede Pass route is physically and operationally feasible, but further analysis of the route should be performed to obtain accurate ridership, scheduling, and cost information. The travel time between Seattle, the Tri-Cities, and Spokane would be at least 7 hours, 21 minutes. At least $350 million in infrastructure improvements were recommended to safely and reliably attain that passenger rail service. However, it is unlikely that partnership funding of this magnitude could be obtained under the state's current transportation funding mechanisms and backlog of projects already scheduled for construction. It will take many years to make new East-West passenger rail service a reality.

STAMPEDE PASS RAIL IMPACTS

The 1996 reopening of Stampede Pass has had a material effect on our region. This BNSF rail traffic traverses the Tri-Cities multiple times on a daily basis. Congestion and delay have affected emergency services, daily work and school commutes, and freight and goods movement. Increased train movements have led to safety issues at railroad crossings and increased air pollution and noise levels in residential areas. As train volumes increase to the capacity of the line, these community impacts increase.

Railroad crossings of major concern included Columbia Center Boulevard, Edison Street, Fruitland Street and Washington Street in Kennewick; Steptoe Street in Kennewick/Richland; and Ainsworth Avenue and “A” Street in Pasco. The Columbia Center Boulevard challenge was addressed with a railroad intersection grade separation completed in 2004 and the Ainsworth Avenue (Charles D. Kilbury) Overpass was completed in 2006.

Reopening the Stampede Pass rail line has resulted in traffic impacts in Pasco, Kennewick, Prosser, and other communities up the Yakima Valley. Grade separations have been constructed at the Interstate 82 Kiona Interchange (Exit 96), Ainsworth (SR 397) in Pasco and Columbia Center Boulevard in Kennewick.

Kennewick and Richland are jointly working on extending Steptoe Street between Clearwater

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Avenue and Gage Boulevard, which includes a grade separated crossing. BNSF is scheduled to begin construction of the railroad bridge in late 2011 in preparation for the future extension of Steptoe Street. Kennewick has programmed additional rail separation improvements on Edison Street and either Washington Street or Fruitland Street contingent on the receipt of funding.

Needed railroad grade separations identified in Kennewick and Pasco cost tens of millions of dollars. Numerous other at-grade crossings require signalization. Thirteen improvement projects with a cost in the hundreds of millions have been identified on the corridor between Pasco and Ellensburg. The anticipated revenues to this region from customary state and federal sources will barely meet anticipated needs to maintain the structural integrity of our streets, roads and highways. Without special funding, these railroad-related transportation needs cannot be resolved.

Hauling freight with double-stacked (two-high) container cars is a lower cost alternative as evidenced by the extent of double stacked trains on our mainline rails. Therefore, doubles are preferred by shippers. As it is currently engineered, the Stampede Pass tunnel does not allow for passage of double-stacked freight trains. BNSF is considering re-engineering the tunnel to allow for passage of trains hauling double-stacked freight containers. Impacts to the three county region of the re-engineering of the Stampede Pass tunnel have yet to be assessed.

The reopening of the old Lind to Ellensburg route would mitigate many of the problems associated with sending these trains through the Tri-Cities and the Yakima Valley. Furthermore, the Lind to Ellensburg route would produce about a two-hour time savings over the Pasco-Yakima Valley route currently in use.

Another potential route restoration would extend the Port of Benton rail line up through the Hanford Reservation, up the Columbia River to Beverly vicinity, then west to Ellensburg on a portion of the Lind to Ellensburg alignment. Advocates have indicated the restoration costs of either the Lind to Ellensburg route or the Tri-Cities to Ellensburg route via Hanford would not exceed the identified needed improvements on the Yakima Valley route. Either of these alternative routes would certainly not have the degree of community impacts previously described for the valley route.

PRESERVATION OF LIGHT DENSITY RAIL LINES

This issue concerns service continuation on the region’s branch or light density rail lines. According to the Federal Railroad Administration's definition, rail lines with annual traffic densities less than five million gross ton-miles per mile are light density.

Four regional light density lines operating in the RTPO area include:  The Port of Benton line operated by the Tri-City & Olympia Railroad, which extends from Kennewick to the Hanford Reservation;  The South Subdivision line of the Palouse River and Coulee City Railroad, which operates from Wallula vicinity easterly to Walla Walla then extends southerly to Weston, Oregon, and northeasterly to Dayton in Columbia County;  The Columbia Basin Railroad line, which separates off the BNSF at Connell with branch lines extending into Grant and Adams Counties, and is operated by the Columbia Basin Railroad; and

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 The Central Washington Railroad, a wholly owned subsidiary of the Columbia Basin Railroad, whose operations include a thirty mile length of rail which extends from Granger, in Yakima County to Gibbon, about eight miles east of Prosser.

Branch or light density rail lines have traffic levels that often do not generate adequate revenue needed for appropriate track maintenance. Accumulated deferral of these expenditures leads to a gradual deterioration of the track, ties, and base, culminating in reduced train speeds and inefficient operations, with the increased probability of derailments. As the costs of operation escalate, service deteriorates, shippers convert to other modes, deferred maintenance costs accumulate to a staggering level, and the line ends up in trouble, possibly facing abandonment.

Washington's branch lines handle local traffic that, if not moved by the railroads, would either move by truck over state and local roads, or would cease to move, which could cause businesses to close or relocate. These lines are important to the State of Washington. The service they provide reduces traffic congestion and maintenance requirements on state and local roads. Washington's branch rail lines also help keep the transportation system healthy by providing shippers with competitive alternatives. A recent study conducted for WSDOT indicated that operation of Washington's branch line rail system saves nearly $20 million per year in road maintenance costs.

The State of Washington has two Rail Assistance programs: The first is the Rail Bank program, which was created to promote economic development through the advancement of freight rail activities. The goal of the Rail Bank is to assist with the funding of smaller capital rail projects that help improve freight movement by rail throughout the state. The second is the Freight Rail Assistance Program, which provides loans and grants directed toward large projects where it is difficult to gain a contribution and where the rail location or the project concerned is of strategic importance to the state as well as the local community.

WSDOT is given $2.5 million per biennium for grants, and $5 million per biennium for loans. Loans are only available for public entities for use on publicly owned lines.

THE GRAIN TRAIN PROGRAM

The Washington Grain Train serves over 2,500 eastern Washington cooperative members and farmers, carrying thousands of tons of grain to deepwater ports along the Columbia River and Puget Sound for transport to ships bound for Pacific Rim markets.

The Washington State Grain Train began operations in 1994 and currently has 118 grain cars in the fleet (100 are owned by the state, and 18 are owned by the Port of Walla Walla). The Union Pacific Railroad, BNSF Railway Company, and Washington short line railroads operate the cars and carry the grain to market.

The Grain Train helps preserve Washington’s short-line railroads by generating revenue; supports a healthy rail network that may maintain and attract new businesses in rural areas of Washington; and reduces wear on local roadways by utilizing rail.

WSDOT jointly manages the Grain Train program with the ports of Walla Walla and Moses Lake, and Whitman County. WSDOT oversees the entire program and the port districts collect monthly payments for the use of the program’s 100 cars.

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The ports can use up to one percent of the payments they receive from the railroads for fleet management services.

Use of the grain cars remains strong. Since its beginning in 1994, the Grain Train program has moved more than 1.2 million tons of grain from Washington to national and international markets.

SEASONAL WEIGHT RESTRICTIONS

Seasonal weight restrictions refer to all weather roads. One definition of an all weather road is a road that does not require emergency weight restrictions to haul freight, crop or product. At issue are sub-standard rural roads in agricultural regions that hinder the flow of commodities to market due to seasonal freeze/thaw problems.

The freeze/thaw cycle causes instability in the structure of both the road itself, and the ground which surrounds and supports the road. During this period, road use may be restricted by time of access or vehicle weight in order to maintain the structural integrity of the road.

Agriculture is a critical component of our regional economy. Wheat is transported to coastal ports for export to other nations. Hay is trucked to Western Washington for horses and dairy cattle. Hay cubes are exported to Asian markets. Produce and other crops such as potatoes, onions, fruit, grapes and seed crops are shipped year around.

Seasonal weight restrictions on county roads pose problems for mobility of these commodities. Additionally, storage facilities are scattered throughout the region to hold these products until needed. The problem arises during freeze/thaw cycles of late winter and early spring when load restrictions hamper shipments.

The development of a coherent system of all weather roads is an important economic issue for both the three-county RTPO area as well as Washington State.

As shown in Table 2-3 eighty-five percent of the rural county freight and goods routes are subject to seasonal weight restrictions. In these times of limited transportation funds, the process of all-weather surfacing these vital routes is moving slowly at best.

Table 2-3: Seasonal Weight Restrictions - Rural Freight & Goods Routes by County Benton Franklin Walla Walla Totals County County County Freight & Goods Route Miles 314 514 344 1,172 Seasonal Weight Restricted Miles 210 448 338 996 Percent Restricted 67 87 98 85 Source: BFCG Data

Figure 2-5 shows existing, proposed reconstruction and planned new construction of all- weather road systems in the three RTPO counties.

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REGIONAL AVIATION AND LAND USE

Aviation is a critical component of the local, state and national transportation system. It provides for the efficient movement of people, goods and services across municipal, state and international boundaries. Four of the seven air facilities in the RTPO are identified as significant to the national aviation system by the FAA and included in the FAA’s National Plan of Integrated Airports (NPIAS). The NPIAS provides the basis of apportioning federal Airport Improvement Program (AIP) funding.

The Pasco and Walla Walla facilities are classified as Primary Airports under the NPAIS, while the Richland and Prosser operations are classified as General Aviation facilities. Two additional airports in the RTPO, Vista Field in Kennewick and Martin Field in Walla Walla County, are non-NPIAS facilities. Lower Monumental State Airport near Kahlotus is a seldom- used single runway state facility.

One of the main challenges facing aviation today is the encroachment of incompatible land use development near and around airports. To meet this challenge, in 1996 Washington State passed land use legislation amending the Growth Management Act (RCW 36.70A.510 and RCW 36.70.547). Under this provision of the GMA, all towns, cities and counties are required to discourage encroachment of incompatible development adjacent to public use airports through adoption of comprehensive plan policies and development regulations.

The Washington Aviation System Plan, completed in 2009, identifies land use as one of seven key focus areas for current and future WSDOT aviation planning. WSDOT Aviation assists local jurisdictions and public use airports in managing incompatible development by providing assistance and resources to support local decision-making. Additionally, they provide a technical assistance program to help communities meet the requirements of the law. Among the objectives of the program are:

 Ensure the functions and values of airports are protected and enhanced statewide.  Assist towns, cities and counties in meeting update deadlines for comprehensive plans and development regulations.  Provide education, workshops and training on best practices to protect airports from adjacent incompatible development and enhance airport operations to meet transportation demand.

SNAKE RIVER/COLUMBIA RIVER DAM AND LOCK SYSTEM

The Walla Walla District of the Army Corps of Engineers is responsible for the maintenance and development of water resource projects on the Snake and Columbia Rivers. This includes four lock and dam operations on the Lower Snake River and one on the Columbia River in eastern Washington:  Lower Granite Lock and Dam near Pomeroy;  Little Goose Lock and Dam near Starbuck;  Lower Monumental Lock and Dam near Kahlotus;  Ice Harbor Lock and Dam near the Tri-Cities on the Snake River; and  McNary Lock and Dam between south Benton County and Umatilla, Oregon on the Columbia River.

The latter three dams are located in the RTPO. The Drawdown/Dam breaching discussed below concerns all the facilities except for the McNary Lock and Dam.

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SNAKE RIVER DRAW DOWN/DAM BREACHING

Breaching of dams or draw down of the Snake River to enhance endangered salmon and steelhead species continues to be a major issue potentially affecting power generation, irrigation of farmlands, recreational activities, and water transportation upriver from Pasco to Lewiston, Idaho. If such actions are implemented there will be severe impacts to the economy of the region, the state, and the entire northwest, as well as increased need for rail and highway facilities to move freight and goods. Port facilities on the Columbia River in Benton, Franklin, and Walla Walla counties would have considerably increased significance and need for capacity improvements.

The Snake River Draw Down Study In 2000, the Legislative Transportation Committee sponsored the “Lower Snake River Drawdown Study: Summary of Transportation Impacts”, to determine the effects draw down or dam breaching would have on the regional transportation system. Commodities being shipped by barge would have to be transported by truck (estimated in 2000 at 700 per day) or rail.

With loss of water transportation on the Snake River there would be a strong shift away from roads leading to port facilities upriver, and a greatly increased load on roads leading to Columbia River port facilities in the Tri-Cities area. That shift would increase traffic on three primary highway corridors: US 395, SR 124/US 12, and the Pasco-Kahlotus Road/SR 26/SR 260 system. In essence, these three corridors would replace the river as the primary route to Tri- Cities ports for trans-shipment to barges for delivery to the Portland area. Little change was predicted in the mode or route choices of commodity shipments downstream of the Tri-Cities.

Under an all-truck scenario (i.e. no shift to rail), the infrastructure improvement costs for the three primary corridors and the Pasco area were estimated at $156 to $177 million, including 20-year life cycle costs.

As lake impoundments draw down to natural flow, water will drain out of the soils. Many areas will experience soil weakening and instability. Related costs for bridge and road repair adjoined to the Snake River were estimated at $48 to $192 million.

Under an all-rail scenario (i.e. no shift to trucks) the infrastructure improvement costs were estimated at $240 to $276 million, including some highway improvements.

A comparison of the existing conditions and draw down scenarios revealed that transportation patterns along local roads would also be affected. Many local roadways, which now only occasionally experience truck traffic, would need to accommodate trucks year around.

In order to reasonably accommodate these increased truck movements, infrastructure improvements would be necessary to maintain adequate road performance and minimal travel delay. Needed improvements include adding roadway capacity; pavement rehabilitation; more frequent maintenance; reconstruction to provide adequate structural stability and/or width; and upgrading bridges to correct or reduce deficiencies.

The estimated costs of this increased freight movement over local roadways were expressed as one-time costs (infrastructure) and annual costs (maintenance and accident costs). The

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2011-2032 Regional Transportation Plan one-time infrastructure costs were estimated at $344 to $417 million. The comparable annual costs for maintenance and accidents were estimated at $1.3 million.

The impacts to road and rail transportation associated with loss of barge traffic on the Snake River are far-reaching and complicated. There is presently no mechanism in place to finance the massive improvements that would be needed at both the state and local levels. The BFCG Board has gone on record (resolution) opposing any breaching or draw downs.

COLUMBIA - SNAKE RIVER SYSTEM MAJOR MAINTENANCE FOR INLAND PROJECTS

The U.S. Army Corps of Engineers maintains 14-foot navigation channel from Portland/Vancouver to Lewiston, Idaho, and operates navigation locks at eight federal hydropower projects on the Columbia and Snake Rivers. The inland navigation system provides access to domestic and international markets for producers throughout the western United States and is part of a just-in-time delivery system for this major international trade gateway.

The Columbia/Snake river system is poised for growth over the next fifteen years. It is fully functional now, and with targeted maintenance funding, it is expected to remain in service to handle that growth in the coming years. Though the system is aging, the Corps is properly maintaining the projects, both with planned repairs in the short run and by developing major maintenance plans for the longer term. Each lock and dam in Portland and Walla Walla Districts performs annual maintenance during a two week closure each year. The major maintenance or rehabilitation projects listed below occur at the end of the life-cycle of the infrastructure, generally 40-50 years after installation.

During late 2010 through early 2011, extended maintenance was performed on several of the locks, including:

 John Day Lock: Installation of a new downstream lock gate, as well as new tainter valves;  The Dalles Lock: Major repairs to downstream lock gate, installation of new tainter valves; and  Lower Monumental Lock: Installation of a new downstream lock gate.

SNAKE RIVER DREDGING

The Snake/Columbia River international trade gateway leads the nation in wheat exports, averaging one-third of all U.S. wheat exports. Forty percent of that wheat arrives at the export elevators by barge from up river. Snake River barging of wheat, other grains, paper products, petroleum products and general container cargo amounts to about six million tons per year with an estimated value of $1.6 billion.

Navigation was restored to a full 14 feet on the Snake River in March 2006. With this dredging, the full economic efficiency of navigation on the Columbia and Snake River system was restored. Barges are fully loading to 14 feet with containers, grain, forest and agricultural products headed downriver for export, and petroleum products and other commodities heading upriver for inland distribution. Siltation is again expected to necessitate dredging in five to seven years.

The Snake is a critical part of a transportation system that keeps northwest products competitive in the world marketplace.

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THE COLUMBIA RIVER CHANNEL IMPROVEMENT PROJECT

The U.S. Army Corps of Engineers completed the last section of the Columbia River Channel Improvements Project in November 2010, finishing an effort that took more than 20 years to complete. The project deepened the Columbia River by three feet, to 43 feet along a 103- mile stretch of river from the Pacific Ocean to Portland, Oregon.

The Corps began dredging in 2005. The Columbia River Channel Improvements Project was a collaborative effort between the Corps and six lower Columbia River ports (Portland, Vancouver, Kalama, St. Helens, Longview and Woodland) to improve navigation by deepening the navigation channel to accommodate the current fleet of international bulk cargo and container ships and to improve the condition of the Columbia River estuary through the completion of other environmental restoration projects.

UNCERTAINTY OF DEDICATED TRANSPORTATION FUNDS

Cities, counties, transit agencies, and port districts share responsibility for the funding of local transportation systems. These entities are experiencing significant reductions in revenues due to the downturn in the economy. Cities and counties rely on sales and property taxes for a significant proportion of their operating revenue, funding debt service, and concurrently financing local transportation infrastructure.

While cities and counties receive some funding from gas tax revenues, all revenue sources have declined significantly in recent years due to the economy and initiatives limiting tax increases. Except for county road funds, no local sales and property tax revenues are dedicated to transportation. Transportation projects and maintenance needs must compete with other general purpose government needs within the budgets of cities and counties.

In 2000 the legislature rescinded the Motor Vehicle Excise Tax. That tax provided a large share of the transportation budgets of the state (highways and ferries), cities, counties, and transit agencies. The state gasoline tax provides the balance of transportation funds from the state. That tax, not indexed to inflation, was established in 1991, resulting in ever decreasing buying power.

In 2003 the legislature implemented a five-cent gas tax increase, an increase in the large truck gross weight fee, and a 0.3 percent vehicle sales tax. Generated revenues were directed to state highway improvement needs. In 2005 the legislature implemented a 9½-cent gas tax increase to be phased in over four years. The package also included other transportation related fees and charges. A portion of that tax increase is earmarked for cities and counties, estimated at $7.5 million per year, each.

While the tax funds earmarked for cities and counties will help alleviate shortfalls, the transportation infrastructure needs (maintenance, capacity improvements) of our regional jurisdictions will still far exceed available revenues.

Transit agencies are generally dependent on sales tax revenues for a significant share of their non-federal revenues. As sales tax revenues declined, transit agencies made significant cuts in projects, services, and staff. Almost every transit agency in the state increased fares – some multiple times – during the 2008-2010 downturn.

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Port districts use property tax revenues and operating revenues to build and operate critical infrastructure. Many ports have seen revenue decreases due to the slowdown in the economy.

All of these local governments are making changes to their plans and projects, reducing funds, and prioritizing scarce resources to meet only the most critical transportation needs. A partial remedy to the decrease of available funds to cities and counties would be to index the state gasoline tax to inflation.

AUTOMOBILE CONGESTION AND ALTERNATIVES TO DRIVING

Americans are spending more time and money caught in rush-hour traffic. Efforts to get people out of their cars and into carpools, vanpools, and mass transit have not kept pace with the growth in population, the number of licensed vehicles, or the vehicle miles traveled.

Drive-alones commonly cite freedom and flexibility not provided by the alternatives listed above as reasons for using private automobiles. Cars and public roadways are available 24 hours a day. They can go virtually everywhere, at any time, and get there faster, provided the roadways provide an adequate level of service.

While increases in the price of gasoline at the pump have been a financial deterrent to many drive-alones, street and highway congestion remains a major concern. Governments at all levels are keenly aware that they cannot build their way out of congestion. Other less costly measures must also be undertaken.

Figure 2-6 presents modal choice journey to work data from the American Community Survey (ACS) for the years 2006-2009 for the Kennewick-Pasco-Richland Metropolitan Statistical Area (MSA). In terms of census geography the Kennewick-Pasco-Richland MSA includes all of Benton and Franklin Counties. ACS Data are based on a sample and are subject to sampling variability.

Figures 2-7 through 2-9 provide journey to work data for each county in the RTPO based on ACS three-year sample periods of 2005-2007, 2006-2008 and 2007-2009.

All four charts show the predominance of the choice by workers to use personal automobiles for their journey to work, but also show a significant contribution of carpool/vanpool users to the final total.

Metropolitan decentralization is increasing in spite of the Growth Management Act. There is no mode of transportation that can meet the related dispersed travel needs with equal flexibility, comfort, and convenience as the private automobile. There are economically feasible strategies to help prevent traffic problems (CTR, TDM, trip reduction, congestion pricing, land use management); to expand choices (pools, transit, non-motorized); or to expand performance-based capacity (signal coordination, HOV lanes, HOT lanes).

Several of these solutions are discussed in greater detail below.

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Figure 2-6: 2006-2009 Kennewick-Pasco-Richland MSA Journey-to-Work Mode Choice Means of Transportation to Work Tri - City Metropolitan Area Estimates

Drove Alone 120,000 Carpooled 100,000 Walked 80,000 Bicycle 60,000 Public Transportation 40,000 Worked at Home 20,000

0 2006 2007 2008 2009

Source: ACS Single-Year Estimates for 2006, 2007, 2008, and 2009

Figure 2-7: Benton County Journey-to-Work Mode Choice Means of Transportation to Work Benton County 70,000 60,000 50,000 40,000 2005‐2007 30,000 2006‐2008 20,000 2007‐2009 10,000 0

Source: ACS Three-Year Estimates for 2005-2007, 2006-2008, and 2007-2009

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Figure 2-8: Franklin County Journey-to-Work Mode Choice Means of Transportation to Work Franklin County 25,000

20,000

15,000 2005‐2007 10,000 2006‐2008 5,000 2007‐2009

0

Source: ACS Three-Year Estimates for 2005-2007, 2006-2008, and 2007-2009

Figure 2-9: Walla Walla County Journey-to-Work Mode Choice Means of Transportation to Work Walla Walla County 20,000 18,000 16,000 14,000 12,000 10,000 2005‐2007 8,000 2006‐2008 6,000 4,000 2007‐2009 2,000 0

Source: ACS Three-Year Estimates for 2005-2007, 2006-2008, and 2007-2009

Regulatory Approaches As with all the solutions discussed in this section, regulatory approaches are most often implemented as one component of a package of traffic mitigation measures that also include roadway capacity expansion and other TDM and TSM measures.

Since 1991, Washington has had a Commute Trip Reduction (CTR) Law to reduce traffic congestion, air pollution, and energy consumption through employer-based programs that

Benton-Franklin Council of Governments Page 2-21 2011-2032 Regional Transportation Plan decrease the number of commute trips made by people driving alone. The law affected only counties with a population over 150,000 and major employers in those counties with 100 or more full-time employees. In March 2006, the legislature changed the threshold from a population basis to hours of vehicle delay on state highways.

For a more detailed review of the history and current effect of CTR legislation on the Tri- Cities metropolitan Area and the RTPO, refer back to discussion beginning on page 2-4.

Transportation Demand Management Transportation demand management (TDM) is a concept that encompasses a range of actions intended to modify travel behavior, usually to avoid additional costly expansion of a transportation system. TDM addresses traffic congestion and increased transportation efficiency by focusing on reducing travel demand rather than increasing transportation supply.

Travel demand is reduced by measures that either eliminate trip making or accommodate person trips in fewer vehicles. TDM techniques generally address the commuter and may include incentives, disincentives, and provision of transportation alternatives. Common TDM alternatives include ridesharing, parking subsidy removal or parking pricing, telecommuting, flextime, transit or rideshare incentives, parking supply limits, and compressed work weeks to reduce driving days.

Even with the support of law, TDM efforts rely on incentives and persuasion to influence commuters’ travel choices. While some voluntary employer-based TDM programs have achieved significant reductions in drive-alone rates at individual sites, voluntary TDM efforts on the whole have not significantly reduced auto use or modified the choice of travel modes. It remains to be seen whether telecommuting, e-commerce, and other forms of advanced communications will, in time, have a more pronounced impact on travel habits.

Major contractors on the DOE Hanford Reservation have attained some effective TDM measures through staggered start times and compressed work weeks.

Transportation System Management Transportation System Management (TSM) promotes better use of the existing transportation system by providing increased accessibility, reliability, and safety. TSM strategies are designed to help improve traffic flow on the existing arterial system. TSM includes HOV and HOT lanes, ramp metering, and traffic signal improvements such as updating the equipment, improving timing plans, and interconnecting signals.

High-Occupancy Vehicle Lanes HOV lanes are high occupancy vehicle lanes reserved for people who share the ride in buses, vanpools, or carpools. In Washington, motorcycles and emergency vehicles are also allowed. The aim is to decrease drive alones by offering timesaving benefits to ride-sharers. The Washington State HOV system consists of a network of special-use freeway lanes which connect major population and employment centers. Freeway HOV lanes currently exist only in the central Puget Sound area.

High Occupancy Toll Lanes With HOT lanes, solo drivers can choose to pay a toll and drive in the HOV lane to avoid congestion when there is space in the lane for more vehicles.

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Mass Transit The use of public transit is increasing in absolute numbers in many areas. However, transit’s share of overall trips is diminishing. One cause of this downward trend is the complex trip patterns of time-pressed two-worker households that involve multiple stops along the commute route (trip chaining) and that make the use of transit time-consuming, inconvenient, and often impossible.

Our cities cannot thrive without mass transit. There will always be those who will remain dependent on public transportation, either out of necessity or by choice, and equity demands that their mobility needs be served.

The Washington State Growth Management Act confines urban sprawl to growth areas with population densities conducive to transit service. Engineers, planners and developers need to design and adequately provide pedestrian access to neighborhood transit stops.

Land Use and Urban Design This strategy includes various land use and urban design approaches aimed at reducing reliance on automobiles. This approach encompasses concepts such as transit-oriented development, transit villages, livable communities, or smart growth, all of which have as goal dense pedestrian-oriented residential communities clustered around transit stations with retail uses within walking distance. The result is less need for cars since residents will have the options to walk, bicycle, and ride transit for most of their mobility needs.

For some people, selection of a residential location may be constrained by financial or employment constraints. However, within limits, people choose where they live, be it the central city or the suburbs, based on their perception of a quality life. That could mean an urban apartment or townhouse or it could mean a single-family home in the suburbs, in spite of the commute.

Community opposition to high-density development, infill development, and more crowding can make transit villages difficult to implement. Full public disclosure and public participation in the planning and implementation phases are critical to success. Land use and urban design strategies should focus on the reduction of automobile use and traffic congestion while meeting the diverse needs of our growing population.

AGING POPULATION

The State Office of Financial Management (OFM) generates county-level population estimates to be used for planning purposes under the Growth Management Act. Projections are developed for “High”, “Medium”, and “Low” series of population growth. The data contained in the tables and figures below are based on the set of medium series forecast developed by OFM in 2007.

According to OFM projections, the population of the RTPO which is 65 and above will increase at twice the rate of the RTPO as a whole. Among other concerns, this has implications for transit and paratransit services as well as safety issues for the driving public.

Table 2-4 shows estimated population increase between 2000 -2030 for Benton, Franklin and Walla Walla Counties and the RTPO as a whole. Figure 2-10 graphs the same data. Benton County is projected to grow by about 40 percent, Franklin County by 125 percent and Walla Walla County by 27 percent. RTPO population as a whole is projected to grow by 53 percent.

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Table 2-4: Estimated 2000-2030 RTPO Population Growth RTPO 2000-2030 Total Population Growth 2000 2005 2010 2015 2020 2025 2030 Benton 142,475 158,100 168,839 176,854 184,704 192,131 198,528 Franklin 49,347 60,500 70,038 80,348 90,654 100,666 109,861 Walla Walla 55,180 57,500 60,840 63,139 65,593 67,895 69,828 RTPO 247,002 276,100 299,717 320,341 340,951 360,692 378,217 Source: OFM 2007 Washington State Growth Management Medium Series Population Projections for Counties

Figure 2-10: Estimated 2000-2030 RTPO Population Growth

Source: OFM 2007 Washington State Growth Management Medium Series Population Projections for Counties

Table 2-5 shows projected 2000-2030 population growth for ages 65 and older for the three counties and the RTPO. Figure 2-11 graphs the same data. The senior population in Benton County is projected to increase by 138 percent, 142 percent in Franklin County and 46 percent in Walla Walla County. Within the RTPO as a whole, the senior population is projected to increase by 110 percent between 2000 and 2030. This is a significant transportation issue.

It is a safety issue because although age itself does not determine driving capabilities, older drivers can experience declines in their sensory, cognitive, or physical functioning that can put them at an increased risk of involvement in traffic crashes. Additionally, senior citizens

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Table 2-5: Estimated 2000-2030 RTPO Population Growth Age 65 and Older RTPO 2000-2030 Population Growth Age 65 and Older 2000 2005 2010 2015 2020 2025 2030 Benton 14,655 16,282 18,697 22,561 27,119 31,646 34,952 Franklin 4,200 4,623 5,058 6,007 7,381 8,778 10,166 Walla Walla 8,174 7,843 8,070 8,868 10,000 11,058 11,819 RTPO 27,029 28,748 31,825 37,436 44,500 51,482 56,937 Source: OFM 2007 Washington State Growth Management Population Projections for Counties

Figure 2-11: Estimated 2000-2030 RTPO Population Growth - Ages 65 and Above 2000-2030 Population Growth Age 65 and Older

60,000

50,000

40,000 Benton Franklin

30,000 Walla Walla RTPO 20,000

10,000

0 2000 2005 2010 2015 2020 2025 2030

Source: OFM 2007 Washington State Growth Management Population Projections for Counties

SPECIAL NEEDS TRANSPORTATION

People with special transportation needs are defined in RCW 47.06B as people "including their personal attendants, who because of physical or mental disability, income status, or age are unable to transport themselves or purchase transportation." Special needs transportation planning is addressed in the 2010 Coordinated Public Transit Human Services Transportation Plan for Benton, Franklin and Walla Walla Counties. Development of the Human Services Transit Plan involved focus groups of stakeholders and users of transportation services, as well as identification and prioritization of special needs-

Benton-Franklin Council of Governments Page 2-25 2011-2032 Regional Transportation Plan related transportation issues. Agencies with special needs clients or special needs residents also participated in the development of the Human Services Transportation Plan. Their participation in subsequent plans and interim meetings is assured.

The 2010 Coordinated Public Transit Human Services Transportation Plan, and any subsequent amendments or Human Services Transportation Plans developed and adopted by the Benton- Franklin Council of Governments are incorporated by reference into this document.

The 2010 Plan and any updates may be reviewed at the following website: http://www.wsdot.wa.gov/acct/planning.htm

GREENHOUSE GASES/CLIMATE CHANGE

At the time of the Update, no specific federal or state statutory direction exists that mandates planning for greenhouse gases and/or climate change at the MPO or RTPO level. However, there is movement in that direction at the federal level, and implementation is moving forward on the state level in Washington.

SAFETEA-LU Section 6001 requires MPOs to consult with State and local resource agencies when developing long-range statewide or metropolitan transportation plans and to include a discussion of potential mitigation activities and potential areas to carry out these activities. Including climate change mitigation and adaptation discussions in the consultation process for metropolitan transportation plans could improve planning and project-level decision-making, reduce vulnerability from legal challenges to the NEPA process, and foster cooperation among transportation, resource and land use agencies.

Climate change could be addressed in the planning process from both a mitigation and an adaptation perspective. The broad geographic scope and time scale of the planning process akes it an appropriate place to consider GHG emissions and the effects of climate change. In July 2008 the Federal Highway Administration issued its Final Report Integrating Climate Change into the Transportation Planning Process. To quote from that document:

“Several federal statutes and regulations govern the transportation planning process. The text of these documents provides some opportunities to link climate change considerations with the planning process. … While there are no specific requirements to directly address climate change, recent revisions to legislation have further incorporated energy and environmental considerations. These revisions offer greater opportunities for MPOs and state DOTs to integrate climate change considerations within their planning processes.”

FHWA and FTA have issued a joint memo to clarify that metropolitan and statewide planning funds are eligible to be used to address the integration of transportation, land use, and climate change.

MPOs can include climate change in the text of Long Range Transportation Plans (LRTPs) to a variety of degrees. Climate change can appear in the vision, goals, policies, strategies, trends and challenges, and performance measures promulgated by LRTPs. Some plans merely recognize that climate change is an issue that relates to transportation and begin to point out the relevance of existing plans and strategies to climate change. Some MPOs see a need for greater involvement from federal or state government in climate change issues. Many agencies are wary of taking steps to change their planning documents before more direction from higher government levels is provided. Page 2-26 Benton-Franklin Council of Governments

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Small MPOs in particular may benefit from higher level guidance on how and where to incorporate climate change in LRTPs. Small MPOs have fewer resources and less power to set policy precedents than do larger MPOs. The potential burden imposed by future climate change legislation at the state or federal levels is likely greater for small MPOs.

The Benton-Franklin-Walla Walla RTPO will implement applicable federal measures as they emerge.

At the state level, Governor Gregoire issued Executive Order 07-02, Washington Climate Change Challenge, in February 2007. This order declared the state’s commitment to address climate change by reducing greenhouse gas (GHG) emissions. An outcome of the Executive Order is RCW 70.235.020, enacted in 2008, which establishes statewide GHG emissions reduction limits.

Those limits are:  Return to 1990 emissions levels by January 1, 2020;  Reduce to 25 percent below 1990 emissions levels by January 1, 2035; and  Reduce to 50 percent below 1990 emissions levels by January 1, 2050.

Also enacted in 2008 was RCW 47.01.440 which establishes a vehicle miles traveled reduction goal and benchmarks for Washington State. Those benchmarks are:  Decrease the annual per capita vehicle miles traveled by eighteen percent by 2020;  Decrease the annual per capita vehicle miles traveled by thirty percent by 2035; and  Decrease the annual per capita vehicle miles traveled by fifty percent by 2050.

At this time, the limits, goals and benchmarks listed above are applicable at the statewide level, and not directed at the local or regional level.

In response to EO 07-02, the Department of Community, Trade and Economic Development (CTED, now renamed the Department of Commerce) authored “Planning for Climate Change - Addressing Climate Change through Comprehensive Planning under the Growth Management Act” in December 2008.

Among the document recommendations are: changes to the Growth Management Act (GMA) to amend the Environment Goal to include climate change; use of the State Environmental Policy Act to incentivize compact development in urban centers or other designated areas within urban growth areas; and prioritizing new and existing infrastructure funds to areas promoting development and transportation choices that support the reduction of greenhouse gas emissions and dependence on foreign oil.

In May 2009, Governor Gregoire signed Executive Order 09-05: Washington’s Leadership on Climate Change.

Section 2(a) of the Executive Order directed WSDOT to:  Estimate current and future statewide levels of VMT,  Evaluate potential changes to the VMT benchmarks established in RCW 47.01.440 as appropriate to address low- or no-emission vehicles, and  Develop additional strategies to reduce GHG emissions from the transportation sector.

Section 2(b) directed WSDOT to work with the state’s four of the state’s largest RTPOs: the Puget Sound Regional Council, Spokane Regional Transportation Council, Southwest

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Washington Regional Transportation Council and Thurston Regional Planning Council to develop practical approaches for reducing GHG emissions at the regional level.

Legislative efforts at refining Washington State’s methodology for addressing greenhouse gas emissions are ongoing. Potential solutions at the local and regional level include change to RTPO-related provisions of the Growth Management Act. The Benton-Franklin-Walla Walla RTPO will implement applicable measures as they emerge.

LIVABILITY/SUSTAINABILITY

Like the topics of greenhouse gases and climate change, there are no specific federal requirements to directly address livability and sustainability at the MPO level. There has, however, been some movement by USDOT and FHWA in this area.

In June 2009, U.S. Secretary of Transportation Ray LaHood, U.S. Secretary of Housing and Urban Development Shaun Donovan, and U.S. EPA Administrator Lisa P. Jackson announced the new Interagency Partnership for Sustainable Communities to improve access to affordable housing, provide more transportation options, and lower transportation costs while protecting the environment in communities nationwide. Through the Partnership, the three agencies are coordinating investments and aligning policies to support communities that want to give Americans more housing choices, make transportation systems more efficient and reliable, reinforce existing investments, and support vibrant and healthy neighborhoods that attract businesses.

The Partnership established six livability principles to act as a foundation for interagency coordination:  Provide more transportation choices.  Promote equitable, affordable housing.  Enhance economic competitiveness.  Support existing communities.  Coordinate policies and leverage investment.  Value communities and neighborhoods.

FHWA has issued “Livability in Transportation Guidebook – Planning Approaches that Promote Livability”. The Guidebook’s primary purpose is to illustrate how livability principles have been successfully incorporated into transportation planning, programming, and project design. It is intended to be an overview on the importance of livability in transportation, to encourage transportation practitioners to think more broadly about project goals, enlist more partners, and develop more integrated solutions that support community livability.

Livability in transportation is about using the quality, location, and type of transportation facilities and services available to help achieve broader community goals such as access to good jobs, affordable housing, quality schools, and safe streets. And, it involves strategically connecting the modal pieces—bikeways, pedestrian facilities, transit services, and roadways— into a truly intermodal, interconnected system.

Sustainable transportation provides mobility and access to meet development needs without compromising the quality of life of future generations. A sustainable transportation system is safe, healthy, and affordable, while limiting emissions and use of new and nonrenewable resources. It also considers the long-term economic health and equity—or social fairness—of a community. Page 2-28 Benton-Franklin Council of Governments

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As mentioned above, there is no federal legislation involving sustainable transportation and livable communities. However, in fall 2010 HUD, USDOT and EPA awarded nearly $410 million in grants through the Partnership for Livable Communities program to build infrastructure and support sustainable living nationwide.

OBJECTIVES-DRIVEN PERFORMANCE-BASED PLANNING

Objectives-driven performance-based planning integrates operations planning into the planning process.

Planning for Operations, a joint effort between the FHWA Office of Operations, Office of Planning and FTA's Office of Planning, was developed to promote multimodal planning practices that support transportation system management and operations. In order to link operational services into the transportation planning and programming process, transportation planners and operators should have a common understanding of the mobility, safety, and efficiency benefits of linking planning and operations. Planning for Operations includes three important aspects:

 Regional transportation operations collaboration and coordination activity that facilitates Regional Transportation Systems Management and Operations,  Management and operations considerations within the context of the ongoing regional transportation planning and investment process, and  The opportunities for linkage between regional operations collaboration and regional planning.

To facilitate implementation and familiarize agencies with this concept, the FHWA developed “Advancing Metropolitan Planning for Operations: An Objectives Driven Performance-Based Approach”. The guidebook presents an approach for integrating management and operations (M&O) strategies into the metropolitan transportation planning process that is designed to maximize the performance of the existing and planned transportation system. It is focused on operations outcomes that metropolitan area transportation planners and operators can utilize to advance performance-driven regional thinking for metropolitan areas.

This Guidebook utilizes requirements for the Congestion Management Process and Management and Operations that are contained in SAFETEA-LU. It is recommended as a means to meet Federal transportation planning requirements for promoting efficient system management and operations and implementing a congestion management process (CMP).

The BFCG will be required to develop a CMP if/when it becomes a Transportation Management Area (see Chapter One, page 1-6). Chapter Ten discusses potential performance measures for roadways as well as for other modes. This could serve as a starting point for the integration of operations planning into the metropolitan planning process.

Integrating Operations Planning principles and guidelines into the Metropolitan Transportation Plan and planning process is a complex and lengthy procedure. The BFCG will initiate this development in 2012.

ELECTRIC VEHICLE INFRASTRUCTURE

During the 2009 legislative session, the Washington State Legislature passed Second Substitute House Bill 1481(2SHB 1481), an Act relating to electric vehicles. The purpose of the law is to

Benton-Franklin Council of Governments Page 2-29 2011-2032 Regional Transportation Plan encourage the transition to electric vehicle use and to expedite the establishment of a convenient and cost-effective electric vehicle infrastructure.

Electric vehicle infrastructure (EVI) is defined as the structures, machinery, and equipment necessary and integral to support an electric vehicle, including battery charging stations, rapid charging stations, and battery exchange stations. "Battery charging station" means an electrical component assembly or cluster of component assemblies designed specifically to charge batteries within electric vehicles. "Battery exchange station" means a fully automated facility that will enable an electric vehicle with a swappable battery to enter a drive lane and exchange the depleted battery with a fully charged battery through a fully automated process.

As codified in RCW 36.70A.695, cities and counties in Washington State are required to allow electric vehicle battery charging stations as a use in all zones except for residential, resource, or critical areas by July 1 of 2010 or 2011, depending on location and governance. Cities adjacent to I-5, I-405, I-90, and SR-520, must also allow battery exchange stations. Counties must also allow exchange stations in areas within 1 mile of these corridors.

Benton-Franklin-Walla Walla RTPO member jurisdictions are required to allow battery charging stations, but not battery exchange stations, in their zoning codes, by July 1, 2011.

The Washington State Department of Commerce (DOC) and WSDOT are teaming up to implement the nation’s first “electric highway,” a basic network of public access electric vehicle (EV) recharging locations along I-5 from British Columbia to Oregon. In July 2011 a contract was awarded to complete a network of fast-charging stations along I-5 between the Canadian border and Everett and between Olympia and the Oregon border. In the area between Everett and Olympia, additional charging stations will be installed through a federal program administered by the U.S. Department of Energy.

The fast-charging stations, to be operational by the end of 2011, will power a vehicle from zero to fully charged in 30 minutes. Each station will include a Level 2 medium-speed charging station which costs less and takes four to six hours to fully charge a vehicle.

Additionally, The Port of Chelan, WSDOT, DOC and several travel destinations announced plans to install battery chargers along US 2 from I-5 to Wenatchee by the end of 2011. This would make the Stevens Pass Greenway the first electric vehicle-friendly National Scenic Byway route. The July 2011 contract referenced above includes installation of fast and medium-speed charging stations along US 2.

Locally, researchers at the Pacific Northwest National Laboratory (PNNL) have developed a “smart charger” that will automatically recharge EV batteries at times of least cost to the user. PNNL is also constructing a charging station.

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CHAPTER THREE - REGIONAL TRANSPORTATION GOALS & POLICIES

INTRODUCTION

The goals, policies, and strategies were developed through the transportation planning process and subsequently adopted by the BFCG Board. These goals and policies will guide and direct the regional transportation planning process for the next twenty years.

MISSION

The mission of this Regional Transportation Plan is to develop and maintain a balanced regional transportation system that provides access and mobility for people, goods, and services in a safe, convenient, and energy efficient manner; minimizes impacts upon the environment; is coordinated through a multi-jurisdictional effort; is compatible with adjacent land uses; facilitates planned economic growth; and maintains the livability of the communities across the entire region.

GOALS OF THE RTP:

 The preparation and implementation of a long range plan which identifies transportation related deficiencies and problems, provides clear direction, and seeks comprehensive least-cost solutions for maintaining the integrity of the transportation system in Benton, Franklin, and Walla Walla Counties;

 A transportation system that is integrated with local land use policies;

 A transportation system that provides lower cost solutions in the form of transit, vanpool/carpool, bicycling, and walking, in lieu of expanding capacity;

 A transportation system that provides access for goods, services, and people while minimizing total system costs;

 A transportation system that provides access and mobility for all citizens regardless of age, race, or ability;

 A transportation system that gives access while minimizing energy consumption and environmental impacts;

 A transportation system that meets the needs for sustained economic growth;

 A transportation system that is consistent with local, regional, state and federal policies; and

 A transportation system that assures improvements are consistent with and supports the values of communities and neighborhood structures.

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POLICIES

Policy 1 – Access & Access Management

It is the policy of the Benton-Franklin Council of Governments to support a regional transportation system that emphasizes access and access management and encourages the member jurisdictions to adopt policies incorporating access management into their construction projects and project prioritization processes.

Background

Access may be defined as a “connection” such as an approach, driveway, turnout or other means of ingress or egress. Access provides for the entrance or exit onto a public highway or street network from the adjoining parcel(s) of land.

State Statute RCW 47.50 requires incorporated cities to have in place access management policies (ordinances) for non-limited access state highways within their boundaries. Those policies shall be equal to or exceed those of WSDOT access management standards. Local agencies also have the option of adopting WSDOT’s access management rules (WAC 468-51 and 52).

The cities are responsible for issuing access permits on non-limited access highways. Counties do not issue state highway access permits, but can educate developers of adjacent lands about the permit application process with WSDOT.

Access management seeks to balance the needs and access rights of adjacent property owners with the need of the traveling public to have smooth traffic flow and to correlate those needs with other factors such as land use plans and zoning, speed limit, and the functional classification of the highway.

Access management promotes an effective transportation system and increases traffic- carrying capacity. Access management reduces the incidences of traffic collisions, personal injury, and property damage or loss; promotes economic growth and the growth management goals of the state.

Action Strategies

Establish a system to define acceptable levels of accessibility of all modes to various land uses for all potential users of the transportation system through minimum service standards.

Support land use strategies that reduce mobility requirements such as mixed-use development, transit oriented development, and infill development.

Encourage multi-modal accessibility to land uses including measures which provide access for the transportation disadvantaged and mobility challenged.

Encourage cities and counties to incorporate access management into their comprehensive planning and into their land use and subdivision regulations and policies.

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Encourage incorporation of access management into project prioritization and selection criteria.

Encourage cities and counties to incorporate access management into their construction projects.

Encourage developers to incorporate access management into their plans.

Policy 2 - Efficiency

It is the policy of the BFCG to support a regional transportation system that 1) Maintains the greatest efficiency of movement in terms of travel time and distance and 2) Requires transportation investment decisions to maximize the full net benefits of the system.

Background

An efficient transportation system is fast and economical for the public, assures the public is faced with the full costs of their transportation choices, and ensures that transportation investment decisions maximize the net full benefits of the system. Full benefits and costs include social and environmental impacts, the benefits of mobility to users, and costs of construction, operations and maintenance.

Action Strategies

Explore the possibility of assimilating cost effectiveness of alternative supply and demand investments, long term level of service/life-cycle cost comparisons, and other economic criteria into the planning process in order to develop cost-effective solutions and more efficient transportation facilities (i.e. least-cost planning).

Encourage coordinated planning practices and road and street standards among the counties and their cities and towns.

Discourage inefficient modes of transportation, such as single occupancy vehicles (SOVs), during peak hours.

Promote maintaining the efficiency of the existing transportation systems by supporting investments in operational strategies and technologies.

Promote Transportation Demand Management (TDM) strategies, voluntary Commute Trip Reduction (CTR), transit, HOV, bicycling, and walking.

Policy 3 - Balance

It is the policy of the BFCG to support a regional transportation system that 1) Stresses multi- modalism with minimum service standards, 2) Provides transportation options, 3) Avoids dependence on any particular mode, especially single occupancy vehicles, and 4) Optimizes the efficiency of each mode.

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Background

A transportation network contains a variety of modes that provide its users with viable choices for making a complete trip. Citizens should have a variety of transportation options for conducting daily activities whether the mode is walking, bicycling, transit, or the automobile. When a particular mode of transportation becomes too dominant, such as single occupancy vehicles, then the system as a whole becomes imbalanced and inefficient. The effects are widespread---pollution, excessive energy consumption, and traffic congestion. It is, therefore, important to strive for balanced use of all modes so everyone may benefit and be given the opportunity to choose from a variety of transportation options.

Action Strategies

Encourage systems and facilities that accommodate multiple modes, when possible, especially along transportation corridors that provide users with cost-effective choices in their travel options.

Support demand management techniques that strengthen the efficiencies of each mode of transportation.

Support the use of the most efficient form of transportation for each area, recognizing that not all modes are appropriate for each area.

Encourage efficient multi-modal transportation systems that are based on regional priorities and coordinated with county and city comprehensive plans.

Policy 4 – Safety & Security

It is the policy of the BFCG to provide a transportation system that maintains and improves safety and security in all aspects of the transportation network, including both users and non- users of the system.

Background

The safety and security of all individuals should be high priorities in the planning, design, construction, and maintenance of the transportation system. In particular, special attention should be given to automobiles. Automobiles pervade almost every part of the built environment, creating potentially dangerous safety hazards for both pedestrians and bicyclists. Safety and security at the “modal-interface” of automobiles, transit, bicycles, and pedestrians is a significant aspect of the transportation system and especially important in multi-modal planning.

Safety and security must be continually reemphasized. The aphorism “an ounce of prevention is worth a pound of cure” makes good sense in transportation planning and should be applied throughout the process.

Washington State’s Strategic Highway Safety Plan (SHSP): Target Zero has been developed to identify traffic safety needs and guide investment decisions to achieve significant reductions in traffic fatalities and serious injuries on all public roads. The data-driven emphasis areas of the SHSP are addressed on page 1-20.

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Action Strategies

Support and promote region-wide participation in the state’s efforts to identify traffic safety needs and guide investment decisions to achieve significant reductions in traffic fatalities and serious injuries on all public roads (SHSP: Target Zero).

Support and promote programs that ensure both structurally and operationally safe and secure pedestrian, bicycle, automobile, truck, rail, waterway, and air travel movement.

Encourage development of transportation safety goals (e.g. road safety targets and policies) to provide direction to the safety component of a plan.

Encourage interagency cooperation between governmental and private enterprises to increase overall safety and security awareness.

Promote high levels of safety standards for all modes of transportation so that users feel safe and secure as they travel.

Implement traffic calming measures to reduce automobile speeds in pedestrian areas, such as residential neighborhoods and school zones.

Encourage cities and counties to seek competitive funding solutions through WSDOT’s Safe Routes to Schools Program.

Policy 5 – Safety Conscious Planning (SCP)

It is the policy of the BFCG to promote integration of urban land use and transportation planning efforts through implementation of safety conscious planning.

Background

Traditionally, safety programs have been reactive in nature, identifying and analyzing collision data and then implementing appropriate enforcement, education or engineering- oriented solutions.

While traditional safety strategies have made improvements, Safety Conscious Planning (SCP) goes beyond conventional safety practices by proactively incorporating road safety into the transportation and land use planning process with a view toward preventing “unsafe” situations from occurring in the first place.

Transportation planners and engineers will logically take the lead in implementing SCP. Implementing SCP will take time to evolve, with safety practitioners and researchers playing a significant role in advancing the knowledge of SCP, and providing the “tools” needed to effectively integrate SCP with other decision-making factors.

Action Strategies

Monitor national efforts toward development of a user-friendly collision prediction model and the associated analytical techniques to diagnose and identify areas in which there is potential to improve the inherent safety of the transportation system.

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Promote safety considerations as key criteria in evaluating projects and programming expenditures.

Ensure that the measures incorporated in a plan effectively reflect road safety issues.

Encourage plan implementation strategies that effectively implement and reflect road safety priorities and financial programming.

Stress the need for SCP in land use planning decisions and processes.

Stress that SCP is also an integral part of transportation planning for all modes of travel.

Policy 6 - Environmental Responsibility

It is the policy of the BFCG to provide a regional transportation system that limits and mitigates adverse and harmful impacts on the environment.

Background

Environmental awareness in transportation planning is an important responsibility. The impacts of transportation projects are far reaching and can affect air quality, water quality, wetlands, endangered/threatened wildlife, cultural/archeological sites, ambient noise levels, and other sensitive environments. Increased awareness of the environment has led to legislation designed to protect the environment for future generations.

Transportation systems develop through planning that includes careful attention to environmental elements. Balance between planning for transportation needs and protecting the environment can be reached by expanding the decision-making process to include a greater spectrum of participants.

Action Strategies

Ensure all elements of the RTP support environmental responsibility in order to meet federal and state requirements.

Promote environmentally efficient modes of transportation such as transit, HOVs, bicycling, and walking in order to minimize negative impacts on the environment.

Promote development of alternatives to actions that adversely impact the environment.

Coordinate with local agencies in identifying and mitigating the effects of the transportation system on sensitive areas.

Promote the preservation of agricultural lands and open spaces and the conservation of fish and wildlife habitat.

Promote consistency with environmental rules and regulations.

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Policy 7 - Transportation Financing

It is the policy of the BFCG to promote funding strategies that ensure regional financial stability for the transportation network.

Background

It is clear that not all currently identified projects will be funded. Decision-makers face a challenge in meeting the transportation needs of Benton, Franklin, and Walla Walla County residents and businesses. Addressing this challenge requires clear strategies for guiding transportation investments to assure that the most critical and important transportation needs are addressed. Major efforts will be required to raise adequate revenues to support extensive capital improvements and maintenance programs in the future.

Action Strategies

Work with community, business and citizen interest groups to establish agreement on transportation needs and to seek support on funding measures to finance capital improvement projects, including innovative financing strategies.

Encourage the state legislature to index the state motor fuel tax to inflation to forestall ever- decreasing buying power.

Encourage the state legislature to consider funding alternatives to the gas tax as vehicles get more fuel efficient, hybridize, or use alternative fuels.

Encourage the state legislature to exempt transportation construction projects from the retail sales tax that currently shifts transportation funds back into the general fund.

Policy 8 - Intergovernmental Cooperation Including Regional Consistency & Certification

It is the policy of the BFCG to provide a regional transportation planning process that 1) Coordinates federal, state, regional, and local comprehensive plans, policies and legislation and 2) Emphasizes cooperation among jurisdictions.

Background

Though sometimes visualized as a tangled web, complex interagency communication is necessary in an environment with multiple levels of government and overlapping jurisdictions. Regional and metropolitan transportation planning is complex, involving a number of agencies, each with their own agendas and policies. Through continuous communication and interaction among agencies, transportation decisions and improvements crossing jurisdictional boundaries are coordinated and consistent.

During the development of the Regional Transportation Plan (RTP), Tri-MATS met regularly to discuss and resolve regional issues related to the RTP including: Regional growth assumptions (population and employment) used for transportation modeling; Level of service standards;

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To assure consistency between local and regional planning efforts, the Growth Management Act (RCW 47.80.023) requires all transportation elements of local comprehensive plans to undergo a consistency review and certification process to ensure that they conform to the requirements of GMA and are consistent with the Regional Transportation Plan (RTP). The GMA states that this process is to be developed and administered by Regional Transportation Planning Organizations (RTPOs).

The Washington Administrative Code’s Procedural Criteria for Adopting Comprehensive Plans (Chapter 365-195 WAC) reiterates sections of the RCWs and recommends further steps to meet the requirements.

The GMA (RCW 36.70A.100) emphasizes coordination and consistency in planning efforts among jurisdictions and agencies.

Action Strategies

Continue to encourage active participation by all members of the Tri-MATS MPO/RTPO structure at the technical, policy, and board levels, including the formation of special committees for specific projects or programs.

Promote and host meetings and workshops pertinent to regional transportation issues, policies, and planning.

Coordinate between state and member jurisdictions concerning technical methods and data to identify and analyze needs of regional significance.

Provide for coordination between the state and member jurisdictions on major transportation decisions involving all transportation modes.

Develop regional “guidelines and principles” to serve as a guide for developing, updating, and reviewing local comprehensive plan transportation elements. (See Appendix C ).

Certify that the transportation elements of comprehensive plans conform to the appropriate requirements of RCW 36.70A.070 and recommend steps to meet the RCW requirements in Washington Administrative Code (WAC) 365-195-325.

Certify consistency between the transportation elements of local comprehensive plans and this Regional Transportation Plan.

Determine consistency of city comprehensive plan transportation elements with the Countywide planning policies adopted by the respective Boards of County Commissioners and the cities within those counties.

Develop a checklist for certifying conformity of transportation elements with the GMA and the Regional Transportation Plan. (See Appendix C)

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Discuss and resolve any inconsistencies identified during the certification process, first with jurisdictional staff, and if necessary, at the Technical and Policy Advisory Committee levels. The BFCG Board will make the decision on any issues of inconsistency.

Policy 9 - Citizen Involvement and Public Education

The BFCG in July 1994 adopted “Public Involvement Procedures for Transportation Planning” (last revised and adopted January 2008). The BFCG develops and maintains on-going programs that include citizen participation in all transportation related decisions.

Background

Involving citizens is important when preparing and adopting a transportation plan, transportation plan element, facility plan or transportation improvement programs. Citizen input throughout the planning process assures the public is informed and aids in maintaining consensus for various projects. Without the assistance of the public, the process becomes dominated by professionals and special interests, who, while specially trained and qualified, may not see every aspect of a project.

Public education is particularly important when transportation related actions or initiatives require public vote.

Action Strategies

Make information about transportation plans, policies, projects, and programs available to the public in an understandable form.

Develop ongoing public education programs and transportation forums about regional and statewide transportation planning to assure the public is informed on current issues, proposed improvements, new technologies, and upcoming events.

Continue to apprise the media (newspapers, radio, and television) of newsworthy transportation information for publication or general disclosure. Arrange interviews, print and distribute flyers, etc.

Continue to include up-to-date transportation information in the BFCG monthly newsletter (circulation300).

Continue to expand and improve BFCG Public Involvement Procedures to attain the most effective citizen involvement and awareness.

Communicate with potential users of the transportation system, including the private sector, to ensure that transportation decisions that impact private facilities or public services are coordinated with the affected users or industries.

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Policy 10 – Livability, Sustainability & Land Use

It is the policy of the BFCG to encourage transportation related decisions that maintain and enhance livability and sustainability for all citizens and communities within Benton, Franklin, and Walla Walla counties.

Background

The objectives associated with the terms “livability” and “sustainability” are not new in transportation planning. Language used to describe these concepts includes smart growth, walkable communities, new urbanism, healthy neighborhoods, active living, transit-oriented development (TOD), complete streets, and others.

The common element shared by all of these terms is an understanding that transportation planning is no longer a stand-alone exercise. More and more transportation planning and neighborhood development projects integrate shared objectives to accomplish a wide variety of community goals.

Sustainable transportation planning considers the future and asks how the decisions made today will meet current demands without compromising the quality of life of the future generations.1

The changing attitudes toward land use and transportation planning, reflected in recent legislation, require adjustment and change of habits. A balanced multi-modal transportation system requires land uses to be efficient and compact with mixed uses. This permits a spectrum of transportation alternatives for individuals making travel decisions.

The vision is for compact cities surrounded by farms and open spaces. This concept can be applied to urban, suburban and rural communities and is one of the most important elements in preserving livable communities. The Growth Management Act (GMA) supports this concept by establishing Urban Growth Areas (UGAs) which denote where growth may take place. Cities may expand their identified UGA’s if there is justification for the expansion and sufficient resources for additional services exist.

Action Strategies

Promote transportation projects and improvements that support community goals of access to jobs, affordable housing, and good schools.

Maximize transportation choices that will improve regional, community, and neighborhood livability.

Promote transportation projects and improvements that enhance and protect a community’s aesthetic values.

Work with citizens and community groups to assure transportation projects support livability within neighborhoods and communities.

1 Livability in Transportation Guidebook, FHWA/FTA. 2010

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Promote the provision of greenbelts, parks, and paths and preservation of open space relative to transportation improvement projects and new infrastructure development.

Encourage infill development and redevelopment in areas where access to alternative transportation is provided.

Support developments that provide options for people to live, work, and shop in the same areas and accomplish day-to-day needs close to home via mobility options other than single- occupancy vehicles.

Support increased densities and in-fill development for efficient use of urban land while still maintaining open-space area and residential privacy and safety.

Strive to improve circulation and access within areas that are most likely to support mixed- use developments, in-fill development, and increased density.

Support the efforts of the Alliance for a Livable and Sustainable Community.

Policy 11 - Pedestrians and Bicycles

It is the policy of the BFCG to promote pedestrian and bicycle travel as essential modes of transportation both within existing communities and new development and to provide opportunities for the safe and efficient use of pedestrian and bicycle facilities as a legitimate alternative to motorized travel and for improved health.

Background

Bicycling and walking are viable components in a multi-modal transportation network.

Bicycling is very efficient and capable of transporting people over distances of five miles or more while using no fossil fuels and using a minimal amount of space. There is much untapped potential for bicycling in our environment, but physical, institutional, and mental barriers keep bicycling from becoming a more common mode of transportation. Overall, the built environment has a significant impact on bicycle behavior. Many people cite existing conditions for pedestrians and bicyclists as the reason for not using these alternative modes. Existing conditions include trip barriers (distance, fear of safety, inadequate facilities, and environmental factors) and destination barriers (security, facilities, lack of employer support).

Pedestrian movement is perhaps the most important mode in the transportation network since all other modes ultimately depend on walking. If we drive we usually walk from our cars. If we take transit, we usually walk from the transit stop. Walking is inherently assumed to be the end mode in which we arrive at our destinations. However, if pedestrian movement is to evolve as a mode by itself, it will take more than just laying down sidewalks.

Pedestrians typically do not walk greater than one-half mile. This means that land uses and other transportation modes need to be coordinated if they expect to support this mode of transportation. Additionally, the pedestrian is much more exposed to the elements than the occupants of a car or bus and requires extra attention in regards to safety and comfort.

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For bicycling and walking to increase as partners in the transportation network, usable facilities must be in place, along with the land use designations to support them. A bicycle and pedestrian friendly transportation network will provide increased travel options for individuals.

Action Strategies

Develop, implement, and maintain, a pedestrian and bicycle plan that is consistent with federal, state, and local pedestrian goals and objectives.1

Establish Bicycle/Pedestrian Advisory Committee (BPAC) to oversee, promote, review, and make recommendations on regional bicycle and pedestrian issues.

Assign a high priority to the provision of bicycle and pedestrian access in local comprehensive plans.

Encourage local jurisdictions to develop ordinances which require the provision of safe, adequate, and convenient access for pedestrians and bicycles in new development.

Encourage provision of sidewalks and bicycle lanes on arterials and school routes.

Encourage local jurisdictions and school districts to cooperatively seek funds through WSDOT’s Safe Routes to Schools Program.

Encourage the connection of parks, open spaces, water and other recreation areas to residential areas with bicycle and pedestrian paths and when appropriate, equestrian paths.

Promote the adoption of efficient non-motorized compatible land use patterns and zoning requirements.

Encourage consideration of pedestrian/bicycle transportation needs relative to all urban transportation improvement projects and subdivision developments.

1See 2010 Regional Bicycle and Pedestrian Transportation Plan for Benton, Franklin and Walla Walla Counties and Tri-Cities Urban Area, October 2010 BFCG.

Policy 12 - Transit Element

It is the policy of the BFCG to 1) Support Ben Franklin Transit and Valley Transit and their goals and policies; 2) Promote a transit system which offers alternatives to the single occupancy vehicle; 3) Promote a transit system that offers services to citizens with special transportation needs; 4) Promote land use patterns that support the use of transit; and 5) Support intercity bus service between Walla Walla and the Tri-Cities.

Background

Transit remains a priority for the region. There are two Public Transportation Benefit Areas (PTBA) within the Benton-Franklin-Walla Walla RTPO: Ben Franklin Transit serving the Tri- Cities, Benton City, Prosser, and the community of Finley; and Valley Transit serving Walla

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Walla and College Place. Both Ben Franklin Transit and Valley Transit prepare their own respective Transit Development Plans which the RTP supports.

A partnership between WSDOT and Greyhound provides intercity bus service called the Grape Line between Walla Walla and the Tri-Cities. The Confederated Tribes of the Umatilla Indian Reservation (CTUIR) also provides intercity bus service from Hermiston, Oregon to Walla Walla and the Tri-Cities.

Action Strategies

Support our transit agencies in their efforts to maintain effective and predictable operations of the transit systems to meet customers’ expectations.

Support the Grape Line’s continuation of intercity bus service between Walla Walla and the Tri-Cities.

Integrate the regional transit systems with other modes of transportation including air, rail, auto, bicycles, and pedestrians to facilitate smooth inter-modal connections.

Evaluate the possibility of providing further intercity transit service as a viable alternative to highway expansion.

Periodically reevaluate the viability of providing some form of transit service to those rural RTPO communities not currently having such service.

Encourage transit friendly land use plans and development patterns.

Support services to those citizens with special transportation needs. Special transportation needs as defined by RCW 47.06B.012; “Persons with special transportation needs” means those persons, including their personal attendants, who because of physical or mental disability income status, or age are unable to transport themselves or purchase transportation.

Policy 13 - Transportation Demand Management/Commute Trip Reduction

It is the policy of the BFCG to promote strategies that offer low-cost solutions to capacity challenges on our streets and highways.

Background

Transportation Demand Management (TDM) and Commute Trip Reduction (CTR) programs are designed to address transportation congestion from the demand side. TDM/CTR seek methods that reduce the amount of vehicles on roadways. As a result, those programs offer low-cost solutions for some road capacity problems.

The focus of TDM is to reduce overall congestion, while CTR programs are specific to reducing congestion during the journey-to-work commute. Strategies to reduce congestion include ridesharing, alternative work hours, use of transit/vanpools, non-motorized modes, and employee/employer incentives. Other broader more community based strategies may include land use alternatives, such as Transit Oriented Development (TOD).

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Action Strategies

Work with WSDOT, Ben Franklin Transit, urban jurisdictions, and major employers to develop and implement a voluntary Commute Trip Reduction program for the Tri-Cities to reduce single occupancy vehicle use, vehicle miles traveled, and minimize trip length during peak periods. Overall benefits will be reduced congestion and delay, cleaner air and less fuel consumption.

Continue to work with decision-makers, jurisdictions, and other agencies to encourage the Department of Energy (DOE) to implement the Federal Employees Commute Trip Subsidy Program.

Encourage employers to offer flexible work schedules (flex time); telecommuting, 4-day work week, and other incentives that reduce peak period travel and lessen the need for roadway capacity.

Encourage commercial drivers to make deliveries and the shipping of freight during off-peak hours.

Investigate ways in which parking can be managed to decrease drive alone commuters.

Explore land use strategies that can reduce the use of single occupancy vehicles.

Continue facilitation of the urban Transportation Demand Management Committee.

Policy 14 - Streets and Highways

It is the policy of the BFCG to encourage a network of streets and highways that 1) Supports a balanced and efficient multi-modal transportation network; 2) Is accessible for a variety of users; 3) Meets the needs for safely moving people, goods, and services throughout the region; 4) Contributes to the livability of both urban and rural communities.

Background

Understanding the various functions of streets and highways is an essential part of transportation planning. Streets and highways are vital links between neighborhoods, cities, and regions.

Providing for both access and mobility functions, street and highway networks allow for travel across the region as well as for local traffic circulation. Maintaining balance between access and mobility brings livability and safety to local communities and efficiency in moving people, goods and services.

Action Strategies

Encourage consideration of multi-modal needs and accessibility, including pedestrians and bicycles, freight and goods movement, etc., relative to all urban transportation improvement projects and subdivision developments.

Promote transportation improvements that enhance community access and livability.

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Promote transportation improvements that meet infrastructure needs of the region’s major sources of economic growth and vitality, including recreation and tourism.

Maintain the arterial street system for the safe and economical movement of people, goods, and services within and through the region and to promote a diversified economy.

Encourage preservation of transportation corridors for future growth.

Policy 15 - Air/Waterways/Rail

It is the policy of the BFCG to encourage air and rail passenger facilities and services and river and rail freight facilities and services that enhance regional economic competitiveness.

Background

Air, waterways, and rail continue to move a variety of goods and people throughout the region. These modes of transportation have special characteristics, requiring special consideration in regards to adjacent land uses, access, and expansion, to ensure long term continuation.

Action Strategies

Ensure that the impact of surrounding development on airport operations is minimized and adjacent land use decisions are consistent with airport operations.

Promote expansion of mainline freight railroad capacity by the railroads and the improvement of rail access to and efficient use of inter-modal terminals and ports.

Promote continuation and improvement of freight service on branch and light density rail lines and preservation of any essential lines threatened with abandonment.

Support and encourage projects to reduce or eliminate conflicts between trains and vehicles and/or pedestrians.

Continue to reject and oppose river draw-downs below current operating levels and removal or breaching of any dams on the lower Snake River or Columbia River systems. The Minimum Operating Pool (MOP) should be maintained by the Corps of Engineers to ensure the preservation of the 14 foot federal navigation channel.

Support the US Army Corps of Engineers in their ongoing efforts to dredge the Columbia River/Snake River system.

Support and encourage the Corps of Engineers to continue Snake River dredging as needed to preserve the viability of port facilities at Clarkston, Washington, and Lewiston, Idaho.

Policy 16 - Freight Movement

It is the policy of the BFCG to encourage safe and efficient freight movement; support inter- modal freight facilities; and ensure that any harmful effects of freight movement are mitigated with the users of the system.

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Background

Freight movement plays an important role in the regional economy by transporting various raw materials and finished products to and from the region. The efficient movement of freight is important. Freight movement by virtue of its magnitude, places wear and stress on roadways. It is necessary to restrict major freight movement to specific roadways designed to withstand inordinate conditions. The protection of neighborhood communities, livability, and public safety should also be a major concern when planning freight movement.

Preservation of existing networks is a priority. Of particular importance are rail abandonments. The elimination of rail routes may create additional freight movement on roads, highways, and freeways and result in public money being diverted into increased maintenance costs or capital expenditures. Special efforts are necessary to keep these lines active.

Also important is preservation of the Columbia/Snake River navigation system extending 465 miles inland from Astoria, Oregon to Lewiston, Idaho. Modern ships require a 43-foot deep channel to access the lower ports of Kalama, Longview and Portland. Siltation is rapidly depreciating the viability of the uppermost ports. In the winter of 2005-2006 the Corps of Engineers completed dredging on the Snake River and lower Columbia River. The dredging work was held up for several years due to lawsuits by those opposed. Siltation is expected to necessitate dredging again in 5-7 years.

Of great importance to Washington and other northwest states is the continued viability and reliability of Snoqualmie Pass (I-90) as the primary freight route over the Cascade Mountains to the Ports of Seattle and Tacoma. Severe winter storms and avalanches have been known to close the pass for hours and even days at a time.

Action Strategies

Gather and maintain freight information for all appropriate modes. Coordinate with local jurisdictions.

Periodically review and update the regional portion of the statewide Freight and Goods Transportation System.

Evaluate freight movement needs, restrictions, opportunities, and constraints within the region. Examine hazards created by freight movement to local communities and search for solutions to mitigate inequities or hazards.

Encourage local comprehensive plans to address the issue of freight movement within their boundaries and address the impacts associated with land use and freight movement.

Support private sector investments in advanced technologies and management systems that support regional goals and policies.

Apply the recommendations from the Eastern Washington Inter-modal Transportation Study (EWITS) and the Strategic Freight Transportation Analysis, both by Washington State University, to applicable policies and strategies.

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Promote and encourage all-weather surfacing of farm-to-market roads subject to heavy truck usage and seasonal closures or weight restrictions.

Encourage freight access improvements to agricultural processing, industrial facilities, ports, rail terminals and other shipping facilities.

Encourage the location of freight facilities adjacent to appropriate existing arterials and transportation hubs and encourage the consolidation of freight facilities wherever feasible.

Support efforts by the Corps of Engineers and the states of Washington, Oregon, and Idaho to restore and upgrade the Columbia/Snake River navigation system to strengthen our position in the international trade market.

Continue support of the WSDOT in their efforts to find solutions to the challenges associated with I -90 over Snoqualmie Pass.

Support WSDOT in efforts to secure funding for the completion of the I-90 improvements over Snoqualmie Pass.

Policy 17 – Intermodalism

It is the policy of the BFCG to encourage and maintain an accessible intermodal passenger and freight network with transportation hubs to facilitate access to urban and rural destinations while maintaining an efficient and balanced transportation system.

Background

Any efficient transportation system relies on a variety of modes to move people and freight. The ability to easily transfer people, goods, and services from one mode to another without unnecessary delay or confusion is part of the concept of intermodalism. Ships, trains, planes, trucks, buses, automobiles, bicycles, pipelines, and walking all contribute to intermodalism. As any transportation system grows the need for efficient connectivity between modes becomes more important.

The regional airports facilitate inter-modal passenger and freight services. WSDOT has re- established intercity bus service with the Grape Line from Walla Walla to the Tri-Cities. The Pasco intermodal depot connects Amtrak, Greyhound Bus Lines, The Grape Line, Ben Franklin Transit and local taxi services. Transit transfer stations provide pedestrian shelters and at some locations, bike lockers. The buses have bicycle racks. The assorted port facilities along the Columbia/Snake River system provide intermodal connections between trucks, barges, and rail.

Action Strategies

Identify major transportation terminals, facilities, routes, and corridors that connect passenger and freight movements with other intermodal facilities.

Develop an intermodal plan outlining the region’s strategies to deal with any constraints to increasing intermodalism.

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Recognize the ability of each mode to enhance the efficiency of other modes. Explore the possibility of other modes contributing to the overall efficiency of the network such as waterways and rail.

Encourage the development or expansion of efficient freight and passenger intermodal facilities that expedite transfers between modes, routes, and carriers.

Work with local jurisdictions to develop and promote regional intermodal facilities to avoid duplication of services.

Policy 18 – Transportation and Economics

It is the policy of BFCG to acknowledge and promote transportation as having a fundamental role in growing and maintaining a healthy and strong regional economy.

Background

In March of 2010 Governor Gregoire and the Legislature added Economic Vitality to the statewide transportation system policy goals. State Statute RCW 47.04.280 defines Economic Vitality; “To promote and develop transportation systems that stimulate, support, and enhance the movement of people and goods to ensure a prosperous economy”. Transportation systems connect people to jobs, recreation, products, and services in local communities within the region and across the entire state.

Action Strategies

Support transportation projects that provide service for new, expanding or existing industry/businesses in the region.

Acknowledge the extensive diversity of commerce within the region.

Encourage and support transportation infrastructure improvements and expansion projects that eliminate congestion points and support a strong economy through promotion of economic development and increased employment opportunities.

Support improvements to freight routes in order to move products and commodities in and out of the region for economic growth as well as the employment stability created by the activity.

Support transit efforts to serve employment centers and develop park & ride lots.

Recognize how projects may impact the recreation and tourism trade.

Continue support for the development and funding of a statewide All Weather Road (AWR) system that allows for the year-round movement of agricultural products, consequently strengthening the rural economy.

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Policy 19 – Maintenance and Preservation

It is the policy of the BFCG to promote the maintenance and preservation of the existing regional multi-modal transportation system.

Background

Preservation is established as one of the State of Washington’s transportation policy goals pursuant to RCW 47.04.280. This goal is defined as; “To maintain, preserve, and extend the life and utility of prior investments in transportation systems and services”. The focus is to maximize the efficiency and quality of the existing transportation and transit systems.

As part of the January 2011 report published by the Washington State Transportation Commission titled Regional Transportation Priority Projects, the Commission identifies a “backlog” of preservation projects across the state. Acknowledging “there is not a consistent, agreed to definition of this term [preservation]” the Commission identified an estimated $6.6 billion needed over the next 10 years for statewide preservation.

Action Strategies

Recognize both a federal and state emphasis on maintaining a safe and efficient existing system rather than building additional capacity.

Encourage scheduling of maintenance and preservation that will achieve lowest life-cycle costs.

Promote detailed inventories and analysis of transportation systems; understanding this exercise can take a variety of forms that may or may not include advanced computer technologies.

Encourage discussions regarding the funding challenges for preservation of the existing multi- modal system.

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CHAPTER FOUR – THE REGIONAL MULTIMODAL TRANSPORTATION SYSTEM

INTRODUCTION

The regional multi-modal transportation system consists of state highways, county roads, city streets, park-and-ride lots, pedestrian/bicycle facilities, transit facilities, airports, railroads, river transportation facilities, and pipelines (natural gas and refined petroleum products). This chapter will review and present information on the individual components of the regional transportation system.

Roadways are a primary element of the regional transportation system. An inventory of the state highway system in the RTPO is presented. Components of the regional state highway system are part of various Federal or state system classifications, which are detailed following the inventory. Those to be addressed in this chapter include:

 National Highway System (NHS) - The interstate system, other freeways and expressways, select principal arterials, and access routes to major airports, ports, public transportation facilities, and inter-modal terminals.

 Scenic & Recreational Highways – Part of the National Scenic Byways system with emphasis on preservation, maintenance, and enhancement of heritage resources, access to those resources, and tourism.

 Highways of Statewide Significance (HSS) – NHS routes, rural highways serving statewide travel, urban links to rural HSS, long haul freight routes, and connections to ports.

 Freight and Goods Transportation System (FGTS) - The Washington State Freight and Goods Transportation System is used to classify state highways, county roads, and city streets according to the average annual gross truck tonnage they carry.

Other classifications, such as the ones below, encompass multiple modes. These taxonomies will be discussed as well.

 Transportation Facilities & Services of Statewide Significance (TFSSS) – The interstate highway system, interregional state principal arterials that serve statewide travel, intercity passenger rail, intercity high-speed ground transportation, major inter-modal terminals (excluding airports), the freight rail system, the Columbia/Snake navigable river system, major marine port facilities, and high-capacity transportation systems serving regions.

 The Regional Transportation System – Defined by the Growth Management Act and designated by the MPO/RTPO for Benton, Franklin, and Walla Walla counties, consists of all state highways, all local principal arterials, selected minor arterials and collectors, airports, transit facilities and services, railroads, port facilities and the Columbia/Snake navigable river system, pedestrian and bicycle facilities, park and ride lots, and major pipelines.

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STATE HIGHWAY SYSTEM

The role and function of the various components of the state highway system in the RTPO are described below. Figure 4-1 shows the state highway system in the RTPO.

The four interstate and federal routes referenced below constitute the east-west and north- south backbones of the three-county highway system. These routes carry the vast majority of freight and goods movement and auto traffic throughout the region.

I (Interstate) - 82 is a freeway extending from I-90 near Ellensburg, Washington, to I-84 near Hermiston, Oregon.

Interstate -182 is a 16-mile interstate spur route from I-82 west of the Tri-Cities to US 395, SR 397 and US 12 in Pasco.

US 12 is a cross-state route extending from the Washington Coast to Lewiston, Idaho. The RTPO portion consists of 3.07 miles in Franklin County and slightly over 64 miles in Walla Walla County.

US 395 is a Highway of National Significance (see page 4-8), extending from Mexico to Canada via eastern Washington. Within the RTPO, the road extends from Umatilla, Oregon to the Adams County Line. Daily traffic volumes contain 30-35 percent trucks through this region.

The remaining state routes noted below are more of local significance, for the most part with lower traffic volumes, and transport less freight and goods.

SR (State Route) 14 is an east-west route along the Columbia River from Vancouver to Plymouth in Benton County south of the Tri-Cities. This route provides a two-lane alternative to I-84 on the Oregon side of the river. A notable volume of truck traffic uses this route.

SR 17 extends north from U.S. 395 at Mesa to I-90 at Moses Lake and beyond. This route serves through traffic as well as farm-to-market. Trucks constitute 30-35 percent of the daily volumes.

SR 21 is primarily a farm-to-market route from Kahlotus north to Lind (US 395). The initial eight miles are in Franklin County.

SR 22 from Toppenish (SR 97) to Prosser (I-82) primarily serves local needs. Less than seven miles are in Benton County. Some truck traffic utilizes this route in lieu of I-82.

SR 24 extends from Yakima to SR 26 at Othello. A primary function of this route is access to the west gate of the Hanford site at the SR 24/SR 240 Junction.

SR 124 extends east from US 12 at Burbank through Prescott, to US 12 at Waitsburg, a distance of 45 miles.

SR 125 extends Oregon's Route 11 north from Milton-Freewater into Walla Walla and on to its junction with SR 124 west of Prescott. Through Walla Walla the route functions as a city street with numerous intersections, traffic signals and commercial activities. The inherent congestion and delay are not conducive to through travel, particularly for trucks. From Walla

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Walla north to SR 124 the route is a farm-to-market road. There have been discussions between urban area jurisdictions and WSDOT to transfer jurisdictional responsibilities for the existing SR 125 and the new Myra Road, which would become the new SR 125.

SR 221 is a 26-mile local farm route from SR 22 at Prosser to SR 14 at Paterson, but attracts through traffic as well.

SR 224 provides a 10-mile connection, from I-82 (Kiona/Benton City) through West Richland to Richland (SR 240). Traffic on this route is oriented to Richland and Hanford work sites and local freight movements.

SR 225 extends from Kiona (I-82) through Benton City to SR 240 at Horn Rapids. DOE Route 10 extends on into the Hanford reservation. Hanford commuters dominate peak volumes on this two-lane roadway.

SR 240 extends from SR 24 at the Hanford west gate to Richland and Kennewick (to a junction with US 395), a distance of 40 miles. In conjunction with SR 24 to Yakima and SR 243 north to SR 90 at Vantage, SR 240 carries regional traffic, including freight movements. It also serves as the primary route of the daily Hanford work-commute.

SR 260 extends east from SR 17 to US 395 at Connell, to a junction with SR 26 at Washtucna in Adams County. Wheat hauling is a major activity on the route.

SR 261 extends from SR 260, east of Kahlotus, to the Snake River crossing at Lyons Ferry, a distance of 14 miles. The route continues another 15 miles into Columbia County to a junction with US 12. Truck traffic constitutes about 20 percent of the daily volume. Some through travelers utilize this route as a shortcut to I-90 east of Ellensburg at Vantage.

SR 263, a farm-to-market route with about 35-percent trucks extends from Kahlotus south 9 miles to the Port of Windust at the Snake River.

SR 397 extends from I-82 at the Locust Grove interchange (exit 114) to the Finley area, then to Kennewick, across the Columbia River, and through East Pasco to the I-182/US 395 interchange. This route serves as freight access to the Port of Pasco, the Port of Kennewick and other industrial sites along the river.

US 730 extends from I-84 at Boardman, Oregon, to I-82 at Umatilla, then continues along the Columbia River to a junction with US 12 in the southwest corner of Walla Walla County. Volumes on the six-mile segment from the Oregon line to US 12 at Wallula Junction are about 49 percent trucks.

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Table 4-1 shows route mileage of the state highway system in the RTPO.

TABLE 4-1: STATE ROUTE MILEAGE IN BENTON, FRANKLIN AND WALLA WALLA COUNTIES State Route Mileage in Benton County Route Beginning Ending Route Miles I-82 Yakima Co. Line West of Prosser Oregon State Line at Umatilla 57.23 I-182 Jct. I-82 West of the Tri-Cities Franklin Co. Line at Columbia Point 6.04 US 395 Jct. I-82 South of Kennewick Franklin Co. Line at the Blue Bridge 5.88 SR 14 Klickitat Co. Line Jct. I-82 at Plymouth 28.53 SR 22 Yakima Co. Line West of Prosser Jct. I-82 at East Prosser 6.76 Yakima Co. Line West of Hanford West SR 24 Gate Grant Co. Line at Vernita Bridge 12.80 SR 221 Jct. SR 14 at Paterson Jct. SR 22 at Prosser 25.95 SR 224 Jct. I-82 at Kiona Jct. SR 240 at Richland 10.18 SR 225 Jct. SR 224 at Kiona Jct. SR 240 at Horn Rapids 11.32 SR 240 Jct. SR 24 at Hanford W. Gate Jct. US 395 at Kennewick 40.22 SR 397 I-82/Locust Road Interchange I-182/US 395 Interchange 22.31 State Route Mileage in Franklin County Route Beginning Ending Route Miles I-182 Benton Co. Line at Columbia Point East of Jct. US 395/SR 397 at Pasco 9.15 US 395 Benton Co. Line at the Blue Bridge Adams Co. Line North of Connell 39.98 Walla Walla Co. Line at Snake River US 12 End. I-182 at Pasco Bridge 3.07 SR 17 Jct. US 395 at Mesa Adams Co. Line South of Othello 14.31 SR 21 Jct. SR 260 at Kahlotus Adams Co. Line 7.62 SR 260 Jct. SR 17 N. of Mesa Adams Co. Line South of Washtucna 35.68 SR 261 Columbia Co. Line at Lyons Ferry Jct. SR 260 NE of Kahlotus 14.33 SR 263 Port of Windust Jct. SR 260 at Kahlotus 9.24 SR 397 Benton Co. Line at the Blue Bridge Jct. I-182/US 395 at Pasco 3.99 State Route Mileage in Walla Walla County Route Beginning Ending Route Miles US 12 Franklin Co. Line at Snake River Bridge Columbia Co. Line E. of Waitsburg 64.37 US 730 Oregon State Line S. of Wallula Jct. US 12 Near Wallula 6.08 US 730 Spur Jct. US 730 Jct. US 12 Near Wallula 0.30 SR 124 Jct. US 12 at Burbank Jct. US 12 at Waitsburg 44.73 SR 125 Oregon State Line S. of Walla Walla Jct. SR 124 W. of Prescott 23.65 SR 125 Spur Jct. SR 125 in Walla Walla Jct. US 12 in Walla Walla 0.67 Source: WSDOT State Log Report

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THE NATIONAL HIGHWAY SYSTEM (NHS)

The National Highway System (NHS) was developed as a way of focusing federal resources on the nation's most important roads. The approximate 160,000 miles of NHS include only four percent of the nation’s roads, but they carry more than 40 percent of all highway traffic, 75 percent of heavy truck traffic, and 90 percent of tourist traffic.

Important to the nation's economy, defense, and mobility, the NHS includes the following subsystems of roadways (note that a specific highway route may be on more than one subsystem):

 Interstate: The Interstate System of highways retains its separate identity within the NHS. The approximate 43,400-mile Interstate Highway System accounts for almost 30 percent of NHS.

 Other Principal Arterials: These are highways in rural and urban areas which provide access between an arterial and a major port, airport, public transportation facility, or other intermodal transportation facility. This component of the NHS includes 21 congressionally designated high-priority corridors as identified in ISTEA. These corridors total about 4,500 miles. In the RTPO, US 395 is designated a high-priority corridor.

 Strategic Highway Corridor Network (STRAHNET): This is a network of highways which are important to the United States' strategic defense policy and which provide defense access, continuity and emergency capabilities for defense purposes. It totals about 15,500 miles.

 Major Strategic Highway Network Connectors: These are highways which provide access between major military installations and highways which are part of the Strategic Highway Network. They consist of more than 1,900 miles of roads linking major military installations and other defense-related facilities to the STRAHNET corridors.

 Intermodal Connectors: These highways provide access between major intermodal facilities and the other four subsystems making up the National Highway System. This includes about 91,800 miles of arterial highways that serve interstate and interregional travel and that provide connections to major ports, airports, public transportation facilities, and other intermodal facilities. In the RTPO, two road segments have been designated as NHS Intermodal Connectors: the route from I-182 north on 20th Avenue to the Pasco Airport; and in Walla Walla, the segment from US 12 northwesterly on A Street to the Airport.

All told, the NHS serves 198 ports, 207 airports, 67 Amtrak stations, 190 rail/truck terminals, 82 intercity bus terminals, 307 public transit stations, 37 ferry terminals, 58 pipeline terminals, and 20 multipurpose passenger terminals. By providing essential linkages to other modes, the NHS creates a more efficient transportation system for the rapid movement of people and products.

The NHS in Benton, Franklin, and Walla Walla Counties is shown in Figure 4-2, on the following page.

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TRANSPORTATION FACILITIES AND SERVICES OF STATEWIDE SIGNIFICANCE

Transportation facilities and services of statewide significance are identified under RCW 47.06.140. These facilities provide and support transportation functions that promote and maintain significant statewide travel and economic linkages. The law emphasizes that these significant transportation facilities should be planned from a statewide perspective. Planning includes a broad range of perspectives serving the interests of all citizens in the state who depend on the system both directly or indirectly.

Transportation facilities and services of statewide significance specifically include the following:  The interstate highway system  Interregional state principal arterials including ferry connections that serve statewide travel  Intercity passenger rail service  Intercity high-speed ground transportation  Major passenger inter-modal terminals excluding all airport facilities and services  The freight railroad system  The Columbia/Snake navigable river system  Marine port facilities and services that are related solely to marine activities affecting international and interstate trade, and  High-capacity transportation systems serving regions as defined in RCW 81.104.015

HIGHWAYS OF STATEWIDE SIGNIFICANCE

Highways of Statewide Significance (HSS) include interstate highways and other principal arterials that are needed to connect major communities in the state. The designation helps assist with the allocation and direction of funding. The HSS was mandated by the 1998 legislature through enactment of House Bill 1487 and codified into RCW 47.06.140. In 1999 the legislature passed House Joint Memorial 4006 requesting that WSDOT, with the assistance of Regional Transportation Planning Organizations, update the HSS at least every five years. The latest revision to the HSS list was adopted by the Legislature in 2009.

Additionally, HSS routes are exempt from local level of service standards

Figure 4-3 below shows HSS routes in the RTPO.

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STATE SCENIC AND RECREATIONAL HIGHWAY SYSTEM

Scenic and Recreational Highways are sections of Washington State Highway that are identified in State law (RCW 47.39 and 47.42) and designated due to a need to develop management plans that will protect and preserve the scenic and recreational resources from loss through inappropriate development. Approximately 4,000 miles of the more than 7,000- mile state highway system make up Washington’s Scenic and Recreational Highways.

Scenic and Recreational Highways have been identified as the most important access routes to scenic and recreational resources in the State. Protection of scenic and recreational resources includes managing land use outside normal highway rights-of-way. Designation as a Scenic and Recreational Highway is required in order to apply for National Scenic Byway discretionary grants.

In 1967, the state legislature enacted the State Scenic and Recreational Highway Act (the Act), which established guidance for developing designation and maintenance criteria for Washington’s Scenic and Recreational Highway System. The Act also calls for planning, design standards, and legislative approval of additions to the State’s Scenic System. As part of the Act, the state legislature provided that motor vehicle funds from the state highway construction budget may be used, if available, for specific elements including:  Right of way acquisition  Highway or roadway construction  Access to scenic observation points  Safety rest areas  Highway landscaping  Signs and markers

In 1990, the state legislature amended the 1967 State Scenic and Recreational Highway Act. The amended State Scenic and Recreational Highways Act calls out several funding priorities including funding further development of the state’s program, signage, and bicycle and pedestrian connections.

Between 1992 and 2008, there has been approximately $25 million in state and federal funds spent on the Scenic and Recreational Highways System. This includes $9 million in state funds, primarily for traveler services like signage and rest areas, and $15 million in federal funds primarily dedicated to tourism and traveler services. Approximately 15% of the $25 million has funded Corridor Management Plans and site plans, while 3% has been dedicated to stewardship efforts.

The term State Scenic Byway has also been used in the past to refer to a subset of the Scenic and Recreational Highways (RCW 47.39 & RCW 47.42) and other highways and roads primarily for marketing purposes. However, there is no legal definition of these routes.

Figure 4-4 shows components of the Scenic and Recreational Highways system in the RTPO.

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FREIGHT AND GOODS TRANSPORTATION SYSTEM

In 1993, the Washington State Legislature enacted RCW 47.05.021, directing the Washington State Transportation Commission (The Commission) to designate a freight and goods transportation system. The Commission adopted the first report in 1995 (Resolution No. 516) and WSDOT has updated the Freight and Goods Transportation System (FGTS) on a periodic basis since that time.

Beginning in 2006, the Washington State Legislature directed WSDOT, instead of The Commission, to adopt the FGTS classification system.

The Washington State Freight and Goods Transportation System (FGTS) is used to classify state highways, county roads, and city streets according to the average annual gross truck tonnage they carry. The Washington State Department of Transportation (WSDOT), with the assistance of the Association of Washington Cities (AWC) and the County Road Administration Board (CRAB), updates the FGTS classifications on a periodic basis as required by the Washington State Legislature.

The FGTS is used to establish project eligibility for Freight Mobility Strategic Investment Board (FMSIB) grants, support Highways of Statewide Significance (HSS) designation, and fulfill other federal reporting requirements for truck and traffic counts. This information also supports planning for pavement upgrades, traffic congestion management, and other investment decisions at the local and statewide level. Community leaders, transportation managers, and planners can use the FGTS to begin assessing freight needs and impacts.

Revisions to the Freight and Goods Transportation System routes and tonnage classifications are developed by the agency (WSDOT, CRAB or AWC) having jurisdiction over the roadway segment. At a minimum, WSDOT updates the list of T-1 and T-2 roadways every two years to assist in FMSIB strategic freight corridor designation. WSDOT’s most recent update of the FGTS occurred in 2009. The WSDOT Freight Systems Division maintains the Freight and Goods Transportation System database and manages the update process.

The FGTS Tonnage Classification System The FGTS tonnage classification system is used to classify state highways, county roads, and city streets according to the average annual gross truck tonnage they carry. Freight corridors designated as Strategic Freight Corridors are those routes that carry an average of four million or more gross tons by truck annually (T-1 or T-2 routes).

The tonnage classifications used for designating the FGTS are as follows:  T-1: more than 10 million tons per year  T-2: 4 million to 10 million tons per year  T-3: 300,000 to 4 million tons per year  T-4: 100,000 to 300,000 tons per year  T-5: at least 20,000 tons in 60 days

FGTS routes in the RTPO are shown in Figure 4-5.

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Truck Volumes on State Routes

WSDOT manages multiple permanent traffic recorders (PTRs) in the RTPO and releases this data as part of their state highway system Annual Traffic Report. The data include truck percentages of Annual Average Daily Traffic (AADT). The truck volumes are estimated, not actual counts. However, they do provide data on trucking activity in the region. Table 4-2 contains estimated truck volumes at PTR sites between 2002 and 2010. The data show substantial increases in estimated truck volumes on the primary north-south and east-west corridors. That is indicative of increasing interstate and intrastate movement of freight and goods.

Figure 4-6 maps the PTR sites included in the table.

TABLE 4-2: RTPO AVERAGE DAILY HIGHWAY TRUCK TRAFFIC, 2002 TO 2010 2008 2010 Site Route Milepost Location 2002 AADT 2004 AADT 2006 AADT AADT AADT ID # Truck Truck Truck Truck Truck 1 SR 12 307.90 East of SR 730 Spur - Wallula 930 992 1024 992 1122 2 SR 24 43.50 At Columbia River Bridge - Vernita 680 735 792 770 858 3 SR 82 121.20 West of Coffin Road - Benton County 3450 3750 4000 3750 4250 4 SR 82 132.03 South of SR 14 - Umatilla 3680 3840 4080 4160 4320 5 SR 182 6.34 At Columbia River Bridge - Pasco 3150 4100 4230 4320 5040 6 SR 221 13.10 South of Sellards Road - Prosser 738 810 1056 960 903 7 SR 240 37.14 North of Columbia Park Trail - Richland 2800 2750 3540 3000 3350 8 SR 395 27.20 South of Vinyard Drive - Pasco 2880 3250 3640 3640 3750 9 SR 395 36.24 North of Blanton/Eltopia Road 3000 3120 3640 3640 3920 Source: WSDOT Annual Traffic Reports

THE REGIONAL MULTIMODAL TRANSPORTATION SYSTEM

RCW 47.80.030 identifies transportation facilities and services to be contained in the regional multi-modal transportation system.

 All state facilities and services (including state highways and state-owned park and ride lots);  Regional arterials;  Transit and non-motorized facilities and services;  Marine ports;  Airports;  Rail facilities;  Multi-modal and inter-modal facilities; and  Non-capital programs including transportation demand management.

RCW 47.80.030 further indicates that facilities, services, and programs contained in the regional transportation system exhibit one or more of the following characteristics:

 Crosses member county lines;  Is or will be used by a significant number of people who live or work outside the county in which the facility, service, or project is located;  Significant impacts are expected to be felt in more than one county;

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 Potentially adverse impacts of the facility, service, program, or project can be better avoided or mitigated through adherence to regional policies;  Transportation needs addressed by a project have been identified by the regional transportation planning process and the remedy is deemed to have regional significance; and  Provides for system continuity.

DESIGNATION OF THE REGIONAL TRANSPORTATION SYSTEM

Consistent with the state's Regional Transportation Planning Program Planning Standards, the designated regional transportation system includes:

 All state-owned transportation facilities and services (highways, park-and-ride lots, etc).  All local principal arterials and selected minor arterials the RTPO considers necessary to the plan.  Any other transportation facilities and services, including airports, transit facilities and services, roadways, rail facilities, marine transportation facilities, pedestrian/bicycle facilities, etc., that the RTPO considers necessary to complete the regional plan.  Any transportation facility or service that regional need or impact places in the plan, as determined by the RTPO.

The remainder of Chapter Four will provide details and discussion on various components of the Regional Transportation System.

BICYCLE AND PEDESTRIAN SYSTEM

Non-motorized transportation in the MPO and RTPO is addressed in the “2010 Regional Bicycle and Pedestrian Transportation Plan for Benton, Franklin and Walla Walla Counties and Tri- Cities Urban Area”. The 2010 Plan is a component of the Regional Transportation Plan and is incorporated by reference into this document.

The Plan covers multiple aspects of bicycle and pedestrian travel in the Tri-Cities and Walla Walla as well as the three counties. Keystones of plan development were workshops held in both the Tri-Cities and Walla Walla which resulted in critical metropolitan-area bicycle issues being identified and prioritized by the attendees.

The plan contains bicycle and pedestrian policies and regulations, and comprehensive plan language for all cities in Benton, Franklin and Walla Walla counties and the counties themselves. Also included are jurisdictions’ project lists and system maps. State, federal and local funding sources, facility design standards and bicycle and pedestrian safety are discussed as well.

The 2010 Plan may be accessed and downloaded at the Benton-Franklin Council of Governments website: www.bfcog.us.

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TRANSIT

Public Transportation Benefit Areas The Benton Franklin and Walla Walla Public Transportation Benefit Areas (PTBAs) are municipal corporations. Ben Franklin Transit and Valley Transit, respectively, operate in the two areas. In general, dedicated public transportation is limited to urban areas served by Ben Franklin Transit and Valley Transit.

Defined in statute (RCW 36.57A), a PTBA is established through a planning and electoral process wherein citizens in a defined area vote to impose up to .06 of 1 percent of a sales tax upon themselves for purposes of developing and funding a public transit agency. The PTBA boundary sets the limit of the area to be taxed and generally sets a limit on the area to receive service. The two PTBA service areas are shown in Figure 4-7.

BEN FRANKLIN TRANSIT

Weekday and Saturday Fixed Route Bus Service Ben Franklin Transit has 24 routes serving Benton City, Kennewick, Pasco, Prosser, Richland, and West Richland. There are five (5) Inter-City routes (which travel between cities) and 19 routes called Locals which do not leave their designated city. Buses are scheduled to arrive at the transit centers at approximately the same time and leave at the same time so transferring from bus to bus is simple to do and easy to understand.

Taxi Feeder Routes A premium service which provides transit links for less travelled areas. Customers call BFT’s contractor for service and have a shared taxi ride to their final destination or are picked up near home and dropped off to catch a bus. This provides access to locations that are costly to serve with fixed route service.

Dial-A-Ride Paratransit Service Dial-A-Ride Paratransit Service has the same hours as fixed route local service through a reservation system with one day’s notice of travel plans and exceeds requirements set forth in the Americans with Disabilities Act (ADA). BFT provides paratransit service throughout the PTBA. This is provided far beyond the legal ¾ mile requirement established by the ADA, with a premium fare charged beyond ¾ mile of fixed routes. Dial-A-Ride services are contracted with private providers such as ARC and Tri-City Taxi’s, as well as provided by BFT staff.

Trans+Plus Night Service Trans+Plus night service operates from 7:00 p.m. to 12:30 a.m. Monday thru Saturday. Reservation lines open at 2 pm daily and riders schedule trips as needed. Night Service is currently financially capped to assure that expenditures remain within BFT’s approved annual budget.

Demand Response Services Demand response services provide trips as needed in low density communities such as Prosser and Finley. Finley service is provided through a contract with reservations being taken by the contractor the day prior to travel, or by subscription. Designated stops have been established for pick-up. BFT staff provides Dial A Ride service in this area. Prosser services are pick-ups at designated stops for general public. This matches the Finley service and helps to reduce travel times and begin the establishment of future possible fixed route service.

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Vanpools This service is employer or community based with volunteer drivers for a shared ride. Ben Franklin Transit makes 12 passenger and mini vans available for use on specific pre-approved trips with volunteer drivers and coordinators for community non-profit or governmental groups usually of single or low frequency trips such as special events.

BFT’s vanpool program will be addressed in greater detail in a later section.

VALLEY TRANSIT

Dial-A-Ride Dial-A-Ride is a special service which uses lift-equipped vehicles to transport people with mobility limitations that prevent them from using Valley Transit's regular fixed route bus service. Dial-A-Ride is available during the same hours as the fixed route bus service.

Evenings and Saturday Service Valley Transit provides transportation service for the general public in Walla Walla and College Place on weekday evenings and Saturday afternoon. Two flex-routes, the West Loop and the East Loop, depart every 45 minutes and provide service to most of the cities' popular destinations. Flex-routes are a route deviation type of service, which means the schedule for each Flex-route provides enough time for the mini-bus to vary from the regular route to pick up people who live within one-quarter mile, about three blocks, but cannot get to the route because of a mobility limitation.

Connector Part of the evening and Saturday services, the Connector is an extension of transit service to areas of Walla Walla and College Place which do not have a nearby bus route. It is available during evening and Saturday service hours to transport those who live more than one-quarter mile from the West Loop or the East Loop routes. This provides a service area similar to the seven fixed routes during weekday service hours, but with a reduced number of vehicles that is more appropriate for times with less demand.

Job Access Job Access is a reservation based transportation service providing rides to and from work and activities that are necessary in order to work. Job Access is a federal grant program requiring that participants not exceed certain income guidelines. Job Access trips to work or training, including a stop at a childcare provider, are available daily from 5:00 am to 11:30 pm. Job Access customers need to register for the service by filling out an application.

Vanpool Vanpool is a program for people who need to drive a long distance to work. Valley Transit will lease a 12 passenger van to a group of people to share the ride. The commute to work can either begin or end in the Walla Walla area.

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BEN FRANKLIN TRANSIT VANPOOL PROGRAM

In 1982, Ben Franklin Transit (BFT), along with the now defunct Washington State Energy Office, began sponsoring a pilot ride-share program in the Tri-Cities. Prior to that date no publicly organized ridesharing activities were available in the area.

At that time, the Federal Department of Energy (DOE) maintained a bus system to transport employees to select work sites on the Hanford Reservation. Because of the Hanford Reservation’s relatively distant location, many Hanford employees utilized carpools and vanpools for travel to work. Ridesharing activities increased throughout the Tri-Cities due to BFT promotion of its vanpool program during the 1980s.

In the mid 1990’s the DOE discontinued their commuter bus service and BFT was able to fill the gap with an aggressive vanpool program. Over time, utilization of BFT’s vanpool program has grown, and BFT has maintained its linkage to the Hanford job site.

Table 4-3 and Figure 4-8 and 4-9 present data showing the growth of the BFT vanpool program over time.

In January 2011, BFT’s vanpool fleet numbered 294 vehicles, with 105 vehicles going to the Vitrification Plant in the Hanford Area, 121 vehicles going to other Hanford Area work sites, and 68 vehicles going elsewhere in the mid-Columbia. BFT has the third largest vanpool program in the state.

TABLE 4-3: BEN FRANKLIN TRANSIT VANPOOL OPERATIONS DATA Ben Franklin Transit Vanpool Operations Data 1995-2010 Year Average # Total Total Passenger Mileage % Ridership % Mileage Vans Operated Miles Passengers Increase Increase Increase Increase

1995 92 1,563,423 466,862 237,134 756,951 51% 48%

2000 141 1,998,723 574,055 107,193 435,300 19% 22%

2005 188 2,716,309 733,443 159,388 717,586 22% 26%

2010 312 4,962,773 1,261,396 527,953 2,246,464 42% 45% Source: Ben Franklin Transit Vanpool Program

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FIGURE 4-8: BEN FRANKLIN TRANSIT VANPOOL RIDERSHIP – 1990 TO 2010

Total Passengers

1,400,000 1,200,000 1,000,000

800,000 600,000 Total Passengers 400,000

200,000

‐ 1990 1995 2000 2005 2010

FIGURE 4-9: BEN FRANKLIN TRANSIT VANPOOL MILES – 1990 TO 2010

Total Miles 6,000,000 5,000,000 4,000,000 3,000,000 Total Miles 2,000,000 1,000,000 ‐ 1990 1995 2000 2005 2010 Source for Figures 4-8 and 4-9: Ben Franklin Transit Vanpool Program

ADDITIONAL PUBLIC TRANSPORTATION SERVICES

Grape Line The Grape Line, initiated in 2007, is a component of WSDOT's Travel Washington program. The Grape L ine fills the gap created when Greyhound bus lines discontinued service between Walla Walla and the Tri-Cities. Its buses regularly provide connections between Greyhound, Amtrak, Ben Franklin Transit and Valley Transit.

Confederated Tribes of the Umatilla Indian Reservation Public Bus Service The CTUIR Walla Walla Whistler bus route serves Pendleton, Mission, Athena, Weston, Milton- Freewater and the Walla Walla Transit Center. All of the Walla Walla Whistler trips are timed to meet the Grape Line bus to/from the Tri-Cities.

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Columbia County Transportation This service operated by Columbia County connects Dayton, Waitsburg and Prescott to Walla Walla. It connects with the Grape Line at the Valley Transit Transfer Center.

Milton-Freewater Bus The Milton-Freewater City Bus connects Milton-Freewater and Walla Walla. Connections with the Grape Line may be made at the Valley Transit Transfer Center.

Greyhound Greyhound in Pasco connects to destinations throughout the United States.

Amtrak Amtrak passenger rail service in Pasco connects to Spokane and Portland, and from there to farther destinations.

Google Transit Google Transit is a valuable resource for trip planning. It provides suggestions for schedules, fares, and location of bus stops. Google Transit currently has local data for Ben Franklin Transit, People for People’s Prosser Shuttle, Valley Transit, Grape Line, The Confederated Tribes of the Umatilla, and the City of Milton-Freewater.

PARK AND RIDE LOTS

The existing park and ride system began development in the early 1980’s. Currently it is comprised of 15 formal park and ride lots in Benton and Franklin Counties and a number of informal lots. This section will review data concerning the formal park and ride lots. Occupancy data presented in this section has been collected by the WSDOT South Central Regional office in Yakima.

The two-county area inventory of park and ride lots includes both park and ride and park and pool facilities, while ownership of most formal metropolitan area park and ride lots is split between the WSDOT and BFT. BFT also leases a few park and ride sites. Distinguishing between the two, WSDOT facilities are primarily park and pool lots adjacent to major roadway intersections such as SR 240/SR 224 or I-182/Queensgate and are sited to capture the vanpool and carpool user. BFT-owned park and ride facilities are located at transit centers in their respective communities. The focus of these facilities is on the transit user rather than the commuter, though commuters may use them.

Also, development of the WSDOT facilities generally preceded that of the BFT lots. A critical distinction to note between the Tri-City area park and ride system and the great majority of park and ride systems is that the central purpose of the Tri-Cities park and ride system was/is to provide convenient parking facilities for vanpools and carpools. In many metropolitan areas, park and ride lots primarily provide parking for transfer to express buses or a mass transit system. Ben Franklin Transit’s service and route system are not designed to provide transportation from these facilities to work sites, though people use transit to get to work locations served by the fixed route system.

Table 4-4 identifies facility ownership, facility type, and shows 2010 occupancy data for the formal park and ride lot system in the Tri-Cities area.

Evaluated collectively, the average annual monthly occupancy rate, and utilization of the Tri-

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Cities park and ride system is increasing. System capacity has risen from 657 stalls in 2001 to 1,555 stalls in 2010, an increase of more than 130 percent. Park and Ride lot usage, based on average monthly system occupancy, decreased from 2001, with 42 percent of capacity being utilized, until 2006 with 28 percent of capacity being utilized. Usage has been increasing since, with the data showing average system monthly occupancy to be at 54 percent in 2010.

Of the 15 sites shown, lease agreements within the last two years have formalized use of both the TRAC facility in Pasco and the parking lot at Stevens Drive and Spengler Road in Richland. The most recent addition to the system is the lot in Kennewick at the intersection of US 395 and Yelm Street.

A more detailed examination of the Tri-Cities metropolitan area park and ride system is available in the “2007 Tri-Cities Metropolitan Area Park and Ride Report”, copies of which may be obtained by contacting the BFCOG offices.

Table 4-4 indexes the Park and Ride lots in Figure 4-10 and contains 2010 occupancy data for each site.

Park and Ride lots in the Tri-Cities metropolitan area are shown in Figure 4-10.

TABLE 4-4: FORMAL PARK AND RIDE LOTS IN THE TRI-CITIES METROPOLITAN AREA

TRI-CITIES AREA FORMAL PARK & RIDE FACILITIES 2010 Avg 2010 Avg Site Facility Monthly Monthly % ID# Facility Facility Owner Type Capacity Occupancy Occupancy

1 Stacy Avenue Station Prosser/BFT Park & Ride 28 10 48%

2 SR 225 & Dale Avenue Benton City/BFT Park & Ride 37 31 83%

3 I- 82 & SR 224 Interchange WSDOT Park & Pool 30 24 81%

4 West Richland Transit Center W Richland/BFT Park & Ride 27 19 69%

5 Flat Top Park Parking Lot West Richland Park & Ride 127 62 49%

6 SR 224 & SR 240 Intersection WSDOT Park & Pool 89 68 76%

7 I-182 & Queensgate Interchange WSDOT Park & Pool 139 6 5%

8 Knight Street & Goethals Drive BFT Park & Ride 33 7 20%

9 WSDOT - Columbia Park Trail WSDOT Park & Pool 249 196 79%

10 West 27th Avenue & South Union Street Kennewick Park & Pool 50 40 81%

11 West Clearwater Ave & North Huntington St BFT Park & Ride 135 35 26%

12 Park Street & 22nd Avenue BFT Park & Ride 50 19 38%

13 Stevens Drive & Spengler Road Port of Benton Park & Pool 350 253 72% 14 TRAC TRAC Park & Pool 172 70 40%

15 US 395 & Yelm Street Kennewick Park & Pool 39 17 43% Source: 2007 Tri-Cities Metropolitan Area Park and Ride Lot Report; WSDOT South Central Region Monthly Park and Ride Inventory

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INTER-MODAL CONNECTIONS

Inter-modal connections in the metropolitan area include fifteen park-and-ride lots, six transit transfer centers, the Tri-Cities Airport, the Pasco Inter-Modal Depot (Greyhound, Grapeline, Ben Franklin Transit and Amtrak) and trailhead parking facilities. Other resources include bike lockers, pedestrian shelters, and parking facilities at transit centers; bike racks on buses; transit shelters and short and long-range parking facilities at the Tri-Cities Airport and Pasco Inter-modal Depot; and taxi service.

The availability of inter-modal choices will continue to be reviewed to support growth. This includes ensuring the metropolitan transportation system has inter-modal facilities of adequate size and number of locations to accommodate potential users at an acceptable level of service.

REGIONAL AVIATION

NATIONAL PLAN OF INTEGRATED AIRPORTS Nearly half of Washington’s public airports are identified as significant to the national aviation system by the FAA and included in the FAA’s National Plan of Integrated Airports (NPIAS). The NPIAS is updated every two years and provides the basis of apportioning federal Airport Improvement Program (AIP) funding.

Under the federal airport classification system, airports are designated as:  Primary airports, which provide scheduled passenger service and have more than 10,000 annual enplanements;  Commercial service airports, which have between 2,500 and 10,000 annual enplanements;  Reliever airports, which have 100 or more based aircraft or at least 25,000 annual itinerant operations; or  General aviation airports, which do not meet the criteria for reliever airports, but still account for significant general aviation activity.

General aviation (GA) is defined by the FAA as all aviation other than scheduled commercial aviation and military aviation. GA activity spans a wide range of services including personal and business transportation, medical evacuation, search and rescue, agricultural support, and flight training.

In the RTPO, the Pasco and Walla Walla facilities are Primary Airports, while the Richland and Prosser operations are classified as General Aviation facilities. Two additional airports in the RTPO, Vista Field in Kennewick and Martin Field in Walla Walla County, are non-NPIAS facilities.

WASHINGTON STATE AIRPORT CLASSIFICATION SYSTEM The Washington State Department of Transportation has also developed state airport classifications for the public use airports in the state. State airport classifications do not supersede FAA classifications, but supplement them by accounting for airports that may not be significant on a national level, and are important to the state aviation system. State airport classifications, along with the identification of facilities and services appropriate for each classification, are important in helping to identify and prioritize airport improvement and funding needs.

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Six classifications identify the roles and service levels of Washington’s public use airports:  Commercial Service Airports  Regional Service Airports  Community Service Airports  Local Service Airports  Rural Essential Airports  Seaplane Bases

Commercial Service Airports accommodate high levels of activity and are typically capable of handling high performance aircraft. They have the largest service areas in terms of driving time and population, and are mostly located in regional high-growth population centers. The Tri-Cities and Walla Walla Airports are Commercial Service facilities.

Community Service Airports serve medium-sized communities and accommodate a wide range of general aviation aircraft. The Prosser and Richland Airports, Vista Field and Martin Field are Community Service Airports. No air facilities in the RTPO are in the remaining classifications.

Commercial Passenger Service Effective and competitive airline service is critically important to Washington State’s economy, providing mobility to Washington businesses and their customers, and offering convenient and affordable transport to Washington residents and visitors.

Table 4-5 shows Washington airport enplanements in 2009. Airports in the RTPO ranked fourth and eight.

TABLE 4-5: WASHINGTON AIRPORT 2009 PASSENGER ENPLANEMENTS 2009 Airport Passenger Enplanements Sea-Tac 15,273,092 86.82% Spokane 1,494,490 8.49% Bellingham 326,850 1.86% Pasco 258,546 1.47% Yakima 60,028 0.34% Wenatchee 51,561 0.29% Boeing Field 35,863 0.20% Walla Walla 33,456 0.19% Pullman 32,443 0.18% Port Angeles 13,340 0.08% Friday Harbor 12,940 0.07% Source: FAA 2009 Air Carrier Activity Information System

Air Cargo Air cargo is a significant economic enabler and driver for Washington State and its communities. Its impact is felt within the businesses supporting air cargo operations as well as in those businesses that depend upon air cargo for shipments of goods and materials.

Table 4-6 ranks Washington airports by commercial tonnage in 2005. Airports in the RTPO are ranked fourth and eighteenth.

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TABLE 4-6: WASHINGTON AIRPORT 2005 AIR CARGO TONNAGE 2005: Airports in Air Cargo Tonnage Rank Airport Tonnage % of Total 1 Seattle/Tacoma 373,233 62.06% 2 Seattle Boeing Field 124,620 20.72% 3 Spokane Intl Apt 93,424 15.53% 4 Pasco 3,377 0.56% 5 Yakima Municipal Apt 2,268 0.38% 6 Bellingham 1,215 0.20% 7 Wenatchee 654 0.11% 8 Moses Lake Grant County Apt 530 0.09% 9 Port Angeles 519 0.09% 10 Mount Vernon 384 0.06% 17 Pullman/Moscow 27 0.00% 18 Walla Walla 9 0.00% Source: WSDOT 2009 Long-Term Air Transportation Study

REGIONAL AVIATION FACILITIES

This section describes aviation facilities in the RTPO. Table 4-7 provides background information. TABLE 4-7: AIRPORTS IN THE BENTON-FRANKLIN-WALLA WALLA RTPO Airports in the Benton-Franklin-Walla Walla RTPO Federal State Airport Ownership County NPIAS Service Service Level Level Commercial Tri-Cities Port of Pasco Franklin Yes Primary Service Walla Walla Port of Walla Walla Commercial Yes Primary Regional Walla Walla Service General Community Prosser Port of Benton Benton Yes Aviation Service General Community Richland Port of Benton Benton Yes Aviation Service Port of Community Vista Field Benton No - Kennewick Service Walla Community Martin Field David Cheney No - Walla Service Walla Lower Monumental WSDOT No - - Walla Source: Compilation of data by BFCG

The Tri-Cities Airport The Tri-Cities Airport at Pasco, owned and operated by the Port of Pasco, is a primary, commercial service facility serving southeastern Washington and northeastern Oregon. Daily scheduled air service includes Delta Connection service to Salt Lake City and Minneapolis/St.

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Paul; Horizon Air service to Seattle; United Express service to Denver and San Francisco; and Allegiant Air service to Las Vegas, Phoenix/Mesa and Los Angeles. Aircraft services include major and minor repair, navigational radio repair and sales, flight training, aircraft rental, charter, aircraft storage and aircraft sales.

Table 4-8 provides information on activity at the airport between 2000 and 2010.

TABLE 4-8: 1998-2010 AVIATION ACTIVITY – TRI-CITIES REGIONAL AIRPORT 2000-2010: Tri-Cities Airport Commercial and General Aviation Activity

Passenger Air Carrier Air Taxi General Aviation Military Year Enplanements Operations Operations Operations Operations Total 2000 209,434 3,165 24,920 61,252 3,150 301,921 2002 210,351 4,271 21,278 72,583 2,903 311,386 2004 215,878 6,632 18,859 55,173 1,583 298,125 2006 225,880 5,590 15,862 37,578 2,286 287,196 2008 241,907 5,906 11,596 33,770 1,997 295,176 2010 308,380 6,092 8,523 30,154 2,288 355,437 Source: Port of Pasco

The Walla Walla Regional Airport The Walla Walla Regional Airport is a primary, commercial service facility with three paved runways and instrumentation. A new terminal was dedicated in 2000. This site is home to about 100 small aircraft, and all sizes of hangars are available for lease. The airport is served with daily United Parcel Freight service and two commercial flights per day. Horizon Air serves the Walla Walla to Seattle market. There were 29,050 boardings in 2010. The main runway (6,526 feet) is capable of handling large aircraft, including freight carriers.

Table 4-9 provides information on activity at the airport between 1998 and 2010.

TABLE 4-9: 1998-2010 AVIATION ACTIVITY – WALLA WALLA REGIONAL AIRPORT 1998-2010: Walla Walla Airport Commercial and General Aviation Activity

Passenger Air Carrier Air Taxi General Aviation Military Year Enplanements Operations Operations Operations Operations Total

1998 23,970 2 4,187 38,147 295 42,631 2002 28,070 16 3,209 36,605 170 40,000 2006 28,260 4 3,190 22,426 100 25,720 2010 29,050 1,024 782 22,427 182 24,415 Source: Port of Walla Walla

The Richland Airport The Richland Airport is a general aviation facility with two 4,000’ runways (both have been recently reconstructed). The Airport currently has 160 based aircraft. Sundance Aviation is the acting FBO (Fixed Based Operator) and provides flight instruction, fueling, aircraft maintenance services and aircraft tie-down rentals.

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Med Star Northwest is a medical transport company that provides transportation to critically injured and/or ill patients. Currently Med Star Northwest has a helicopter and fixed wing plane based at the Richland Airport that provides 7 days a week 24 hours a day service.

The Prosser Airport The Prosser Airport is a general aviation and community service facility owned by the Port of Benton. It serves light single and twin engine propeller driven aircraft. There is one 3450-foot paved runway and no instrumentation. About 15-20 small aircraft are based here.

Vista Field Vista Field, owned and operated by the Port of Kennewick, is a non-NPAIS, community service airport with one paved runway and no instrumentation. There is one 4000-foot paved runway. This facility is home base for about 30 small aircraft. A new master plan was completed in 2011 with recommendations for improvements.

Martin Field Martin Field near College Place is a privately owned, non-NPAIS, community service airport with private ownership, but available for public use. The airport has a 3,800-foot paved runway with edge lighting and glideslope approach lighting, but is non-instrumented. It also has a parallel 1,300-foot turf runway. Fifty-five light aircraft are based at Martin Field and the airport has a self-service aviation fuel facility.

Lower Monumental Lower Monumental is a state-owned, gravel surfaced, emergency airstrip near Kahlotus. The site is not used on a regular basis.

The City of Connell is served by a privately owned, single runway (paved), non-instrumented facility. A few single engine aircraft are based here. This facility does not meet FAA criteria for general utility aircraft use. A site selection study was done for a new airport; however, no new facility has materialized.

REGIONAL FREIGHT RAIL SYSTEMS Six railroads provide freight rail service in the RTPO. This section contains information on all six, as well as referencing other types of freight rail service within the RTPO.

RAILROAD CLASSIFICATION

Railroad classification is determined by the Surface Transportation Board, with revenue as a determining factor. The Board has defined revenue-based characteristics for Class I (the largest), Class II and Class III railroads. Freight rail service in the Benton-Franklin-Walla Walla RTPO is provided by two Class I railroads, one Class II, or regional railroad, and three Class III, or short line railroads.

The two Class I railroads are the BNSF Railway (formerly Burlington Northern Santa Fe) and the Union Pacific (UP). These two railroads provide the primary connections between Washington’s ports, farmers, and industries and the rest of North America.

The Class II, or regional, railroad is the Palouse River & Coulee City Railroad. It provides service to several industries, but most significantly to grain shippers. The railroad consists of a combination of privately and publicly owned track.

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The three short line railroads in the RTPO are the Central Washington Railroad, the Columbia Basin Railroad and the Tri-City & Olympia Railroad. These lines provide both collector/distributor services for the larger railroads and local rail service to Washington State shippers. Table 4-10 classifies freight rail service providers in the Benton-Franklin- Walla Walla RTPO.

TABLE 4-10: FREIGHT RAIL SERVICE PROVIDERS IN THE BENTON-FRANKLIN-WALLA WALLA RTPO Benton-Franklin-Walla Walla RTPO Freight Rail Service Providers Name Class I Class II Class III BNSF X Union Pacific Railroad X Palouse River & Coulee City Railroad X Central Washington Railroad X Columbia Basin Railroad X Tri-City & Olympia Railroad X Source: Washington State Transportation Commission Statewide Rail Capacity and System Needs Study: Task 1.1.A – Washington State’s Freight Rail System (2006)

FREIGHT RAIL SERVICE PROVIDERS IN THE RTPO

The following information was compiled from three sources: websites, phone interviews and primarily, the “State Rail Capacity and System Needs Study: Task 1.1.A, Washington State’s Freight Rail System” a technical memorandum prepared as part of the Washington State Transportation Commission’s Washington State Statewide Rail Capacity and System Needs Study (including the maps).

Figure 4-11 shows the rail lines in the RTPO.

Class I Railroads

BNSF RAILWAY BNSF is one of the four largest U.S. railroads. BNSF operates over 1,600 route miles in Washington State, which represents five percent of their total system route miles. Service is provided over seven major corridors, and nine low-density corridors. The major corridors provide the primary conduits to the North American rail network, while the low-density corridors offer collection/distribution services.

The Benton-Franklin-Walla Walla RTPO is traversed by three BNSF major corridors and no low- density corridors. BNSF major corridors through the RTPO are summarized in the discussion that follows.

Portland-Pasco Main Line The 233-mile BNSF Fallbridge Subdivision connects Portland, Oregon, with Pasco, Washington, a junction with main lines to Seattle and Spokane and the location of an important classification yard. The line closely follows the Columbia River for its entire length, connecting with the Oregon Trunk Subdivision at Wishram.

Between 35 to 45 freight trains traverse the line daily, with the Portland section of Amtrak’s passenger service, Empire Builder, running once each way per day. Annual freight traffic

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Auburn-Pasco Main Line BNSF’s 227-mile main line across central Washington consists of the Stampede Subdivision between Auburn and Ellensburg, and the Yakima Valley Subdivision connecting Yakima and Pasco. The Stampede Subdivision crosses the Cascade Mountains at Stampede Pass, entering the Stampede Tunnel at the summit. The Yakima Valley Subdivision traverses the twisting Yakima River Canyon.

Between 35 to 45 freight trains traverse the line daily, with the Portland section of Amtrak’s passenger service, Empire Builder, running once each way per day. Annual freight traffic consists of intermodal, forest and agricultural products, refuse, coal, chemicals and finished automobiles.

Auburn-Pasco Main Line BNSF’s 227-mile main line across central Washington consists of the Stampede Subdivision between Auburn and Ellensburg, and the Yakima Valley Subdivision connecting Yakima and Pasco. The Stampede Subdivision crosses the Cascade Mountains at Stampede Pass, entering the Stampede Tunnel at the summit. The Yakima Valley Subdivision traverses the twisting Yakima River Canyon.

In response to the declining rail traffic of the early 1980s and the high cost of maintaining three main lines across the State, Burlington Northern abandoned the line over Stampede Pass in 1982; the majority of the corridor was sold to the Washington Central Railroad. The line lay essentially dormant until the mid-1990s, when a period of unexpected growth stretched the capacity of BNSF’s Stevens Pass and Columbia River routes to the limit, culminating in the decision to reacquire and reopen the line to allow the diversion of low-priority traffic from the vital intermodal corridors.

An average of seven trains utilizes this freight-only corridor each day. Freight traffic includes forest, agricultural and chemical products.

Pasco-Spokane Main Line The 149-mile BNSF Lakeside Subdivision is a vital line connecting Pasco and Spokane. Its eastern 12 miles also host UP trains operating between Hinkle, Oregon, and Spokane. The line traverses rolling farmland as it skirts north of the Palouse Region.

Approximately 33 BNSF freight trains operate on the line daily, along with a daily average of 11 UP trains on the shared line near Spokane. In addition, the Portland section of Amtrak’s Empire Builder runs once each way per day. Annual freight traffic consists of intermodal, forest and agricultural products, coal, chemicals and finished automobiles.

UNION PACIFIC RAILROAD The Union Pacific Railroad (UP) is the largest railroad in North America, operating 32,400 route miles in the western United States. UP operates over 558 route miles in Washington State, which represents less than two percent of their total system route miles. Service is provided over two major corridors, and three low-density corridors. The major corridors provide the primary conduits to the nationwide rail network, while the low-density corridors offer collection/distribution services.

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Hinkle-Spokane Main Line UP’s 171-mile Ayer Subdivision connects Hinkle Yard in Hermiston, Oregon, to Spokane. At Fish Lake, the north end of the line, UP utilizes trackage rights on BNSF’s Lakeside Subdivision to access Spokane. The Ayer Subdivision hosts an average of 11 freight trains per day, and does not have passenger service. Freight traffic is primary forest and agricultural products, potash, and chemicals.

Two UP branch lines also function within the RTPO. The 11-mile Ayer Junction-Riparia Subdivision connects the Ayer Subdivision to the Great Northwest Railroad at Riparia in Columbia County, while the 19-mile Wallula-Kennewick branch line extends from the junction with the Ayer Subdivision at Wallula to the connection with the Tri-City & Olympia Railroad at Richland Junction.

Class II Railroads

THE PALOUSE RIVER & COULEE CITY RAILROAD The Palouse River & Coulee City Railroad (PCC) is a wholly owned subsidiary of Watco Companies with offices located in Lewiston, Idaho. It serves a variety of shippers of agricultural products, hauling wheat, lentils and barley over 202 mainline miles.

The PCC is comprised of three branch lines, two of which operate in Whitman and Spokane Counties. The third line, the South Subdivision, connects Wallula, located on the UP Hinkle- Spokane line, to Walla Walla, then from Walla Walla to Dayton, Washington and Weston, Oregon.

These two lines were among a group of rail lines acquired by the Blue Mountain Railroad (BLMR) in 1992 from UP; the BLMR was subsequently acquired by the PCC in 1998.

Class III Railroads

CENTRAL WASHINGTON RAILROAD The Central Washington Railroad (CWA), a wholly owned subsidiary of the Columbia Basin Railroad (CBRW), serves a series of former BNSF and UP branch lines in central Washington, predominantly in Yakima County. In the RTPO, this includes a portion of a thirty mile length of rail from Gibbon (just east of Prosser) to Granger, in Yakima County. The CWA handles various agricultural and chemical products on these lines, interchanging with BNSF at Yakima, Toppenish, and Gibbon.

COLUMBIA BASIN RAILROAD COMPANY The Columbia Basin Railroad (CBRW), formerly the Washington Central Railroad Company (WCRC), is a short line railroad serving Central Washington that was started in 1996. CBRW is locally owned and operated, with offices in Yakima, Washington. The rail line is primarily an agricultural based railroad handling grain, sugar beets, fresh and frozen potatoes, fertilizers, chemicals and paper products, performing interchange with BNSF on its Pasco-Spokane line at Connell.

The Washington Central Railroad Company (WCRC) began in 1986, following the purchase of 350 miles of rail in the Yakima Valley and Columbia Basin from Burlington Northern. In 1995, Burlington Northern Railroad and Santa Fe Railroad merged. The newly formed Burlington Northern Santa Fe (BNSF) decided to re-acquire the WCRC rail lines to make a third rail route

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Benton-Franklin Council of Governments Page 4-33 2011-2032 Regional Transportation Plan into western Washington – Stampede Pass - available, and to provide more efficient trans- continental rail service for the Ports of Seattle and Tacoma.

The owners of the WCRC sold the company to the Burlington Northern Santa Fe in December 1996. BNSF only had an interest in the Stampede Pass mainline of the WCRC. The owners of the now defunct WCRC formed the Columbia Basin Railroad Company (CBRW) and leased back the 84 rail miles between Connell and Moses Lake, which they had previously owned, from BNSF.

The lease from BNSF is comprised of a collection of four former Northern Pacific and Milwaukee Road branches in central Washington. The line partly within the RTPO is a 40 mile long segment which passes between Connell in north central Franklin County and Wheeler in southeastern Grant County. Additional CBRW holdings operate in Adams, Grant and Clark Counties.

TRI-CITY & OLYMPIA RAILROAD The Tri-City & Olympia Railroad (TCRY) owns two separate operations in Washington. In the RTPO, their line operates between Richland and the south border of the Hanford Site. It was leased from the Port of Benton in 2000, the Port having acquired the trackage from the United States Department of Energy (DOE) in 1998. In accordance with the Port’s goal of redeveloping the site for industrial use the TCRY leased the remaining trackage within the Hanford Site from the DOE in 2002. The other TCRY line operates in Thurston County.

ADDITIONAL FREIGHT RAIL SERVICES IN THE RTPO

Additional freight rail services complement the conventional rail services described above. This section provides a short overview of each one.

THE GRAIN TRAIN PROGRAM The Washington Grain Train serves over 2,500 cooperative members and farmers in one of the most productive grain-growing regions in the world. The Grain Train is designed to preserve the viability of light density rail lines; reduce road maintenance costs; reduce congestion and increase road safety; and support energy efficient movement of goods. The program supplies additional rail cars to railroad companies that have been traditionally short of rail cars during the key autumn shipping season.

In November 1994, the first of 29 state-sponsored grain cars began service on the Blue Mountain Railroad. In cooperation with local port districts, the program used energy rebate funds to purchase the first rail cars. In January 2011, 29 newly acquired grain hopper rail cars begin service as part of Grain Train, bringing the total number of cars in the program to 118.

WSDOT oversees the entire program and the port districts collect monthly payments for the use of the program’s cars. The Grain Train program is financially self-supporting as user fees pay to operate the program and purchase cars as funds become available.

The grain train program produces a number of public benefits including:  Helps move Washington products reliably and efficiently to domestic and international markets.  Helps preserve Washington’s short-line railroads by generating revenues that can be used to upgrade rail lines and support the railroad’s long-term infrastructure needs.

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 Helps support a healthy rail network that can maintain and attract new businesses – especially in rural areas of Washington.

Use of the grain cars remains strong. Since its beginning, the Grain Train program has moved more than 1.2 million tons of grain from Washington to national and international markets. In 2010, 2,492 carloads of grain were shipped via the Grain Train.

The Washington State Department of Transportation (WSDOT) jointly manages the Grain Train program with the ports of Walla Walla, Moses Lake, and Whitman County. WSDOT oversees the entire program and the port districts collect monthly payments for the use of the program’s 118 cars.

Figure 4-12 below charts the use of Grain Train rail cars between 1995-2010.

FIGURE 4-12: GRAIN TRAIN CARLOADS 1995-2010 Annual Grain Train Carloads 1995-2010

2500

2000

1500

1000

500

0 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010

Source: WSDOT Rail Division

RAILEX Railex, started in autumn 2006, is the first system of its kind in the United States for hauling perishable produce from the West Coast to the East Coast. The company currently runs two 55-car refrigerated unit trains a week on a five-day run from Wallula to its Northeast terminal in Rotterdam, New York. With Railex's closed loop, the train stays intact and stops only for crew changes, fuel top-offs and required inspections in Nebraska, Illinois and Ohio.

The Railex facility in Wallula includes a two-mile oval of railroad track that passes through a refrigerated warehouse 1,500 feet long and 140 feet wide. The warehouse provides 220,000 square feet of refrigerated space with six separate computer controlled temperature zones. Trucks can unload at docks on the outside of the warehouse directly into the refrigerated portion of the building. The train pulls through the building and dock workers load the produce onto railcars pallet by pallet.

Each unit train represents about 200 truck trips taken off U.S. highways and a savings of 100,000 gallons of diesel fuel. Trains from Washington now deliver everything from apples, onions, frozen vegetables, flowers, and cases of wine to New York in refrigerated, temperature-controlled freight cars.

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Union Pacific and CSX Transportation share the responsibility of making sure the shipments reach the East Coast in less than a week. In 2009, Railex added another distribution site in Delano, California, and runs two trains each way weekly between New York and California. Plans are underway to develop a facility in the southeast, opening additional potential markets to Washington products.

PORT OF BENTON INTERMODAL TRANSLOAD CENTER Completed in September 2008, the Port of Benton has developed the 7,000 square foot Intermodal Transload Center to handle increased demand for shipping products by rail across America. The Port teamed up with the State of Washington, the City of Richland, and the Tri- City & Olympia Railroad, to build the Center at the Horn Rapids Industrial Park in Richland.

The Transload Center is strategically located with dual rail access (Union Pacific and BNSF Railways), and daily switching provided the Tri-City & Olympia Railroad. The temperature controlled facility can handle frozen, refrigerated and dry products from a wide variety of growers and manufacturers. Small shippers are able to assemble and combine custom quantities of their agricultural products into custom shipments to customers located throughout the United States.

FRONTIER RAIL Since 2006, Frontier Rail has operated a railcar switching business for Railex and Union Pacific Railroad at the Port of Walla Walla Dodd Road Industrial Park near Wallula. Frontier chiefly services the warehouse switching needs of Railex. Frontier also provides important efficiencies to the first and final mile of the UP "Produce Railexpress" the train carrying the Railex business to New York State. Services provided to UP include car interchange, railcar 0repairs, and freight car inspections/initial terminal air tests.

PORT OF PASCO NORTHERN RAIL TRANSLOAD HUB The Port of Pasco over the past five years has completed a multi-phase investment in new rail in its transload facility in Big Pasco Industrial Center to secure and expand the rail connection to deep water ports for agricultural exports bound for Asian markets, to assure rail service for shippers having difficulty securing trucks, and to foster competitive freight prices for producers shipping to international markets.

In addition, the investment in rail improvements maintains and improves existing access to a Class 1 railroad for regional freight and creates a Pacific Northwest distribution point for domestic westbound freight. Most recently, wind-energy components have been brought into Big Pasco on the new rail for distribution to many Pacific Northwest wind farm projects. Approximately 9,000 linear feet of rail is available on 3 parallel tracks north of the warehouses to accommodate a divided unit train or smaller segment-trains for transloading. Approximately 4-acre to 24-acre areas of land are available adjacent to rail for lease for staging transload operations.

PASSENGER RAIL

Amtrak passenger service, the “Empire Builder,” operates daily on the BNSF track from Seattle to Vancouver, through Pasco to Spokane. A companion route operates on BNSF track between Seattle and Spokane, where the two trains link up to continue toward Chicago. Westbound passenger service stops at the Pasco Inter-modal Depot in the early morning; eastbound service is scheduled for late evening. Arrival times vary due to heavy freight traffic on the line.

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Figure 4-13 charts passenger traffic at the Pasco Station between 2001 and 2010.

FIGURE 4-13: 2001-2010 PASSENGER ARRIVALS AND DEPARTURES, PASCO STATION Amtrak Ridership - Pasco

16,000 14,000 12,000 10,000 8,000 Entrained 6,000 Detrained 4,000 2,000 0

Source: Amtrak, Government Affairs Division

FREIGHT RAIL, GRAIN ELEVATORS AND RIVER TRANSPORTATION

Barging commodities down the Snake and Columbia River system to coastal ports in Washington and Oregon has proven to be a cost effective option to alternate modes of freight transport. Just one typical 4-barge tow can move approximately 15,000 tons of grain. It takes 538 trucks or 140 rail cars to move the same quantity.

As shown in Table 4-12 (page 39), there are eight grain elevators with river access along the Snake-Columbia river system in the RTPO. Four of these facilities have rail access, but only one – the Port Wallula Pier operated by the Northwest Grain Growers – currently takes delivery of grain by rail. The Port Wallula Pier receives from 2,500 to 3,000 rail cars of grain annually, or about 50 percent of the grain it handles in one year.

Grain elevators with port facilities to ship by barge are shown on figure 4-14 on page 42.

WATER TRANSPORT

The Columbia-Snake River system, with its government locks at each of eight dams, affords 465 miles of water transportation from Astoria, Oregon, to Lewiston, Idaho. The system allows the three barge lines serving the region to transport commodities to and from locations throughout the world via the ports of Kalama, Longview, Vancouver, and Portland (the nation’s largest wheat export portal).

Nearly 15 million tons of cargo were transported on this water highway in 2010. One tug and barge can move 3,500 tons of grain. It would take 116 trucks or 35 rail cars to move the same quantity.

There are 17 barge terminals in the Mid-Columbia and Snake navigation region, each served by truck and/or rail. Those within the three-county region are the Ports of Benton,

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Kennewick, Pasco, Walla Walla, and Windust. Seven more ports lie upriver, including the last one at Lewiston, Idaho.

SNAKE RIVER/COLUMBIA RIVER DAM AND LOCK SYSTEM

The Walla Walla District of the Army Corps of Engineers (COE) is responsible for the maintenance and development of water resource projects on the Snake and Columbia Rivers. This includes four lock and dam operations on the Lower Snake River and one on the Columbia River in eastern Washington:  Lower Granite Lock and Dam near Pomeroy;  Little Goose Lock and Dam near Starbuck;  Lower Monumental Lock and Dam near Kahlotus;  Ice Harbor Lock and Dam near the Tri-Cities on the Snake River; and  McNary Lock and Dam between south Benton County and Umatilla, Oregon on the Columbia River.

The latter three dams are located in the RTPO.

Table 4-11 shows total barge tonnage by commodity for Walla Walla District COE facilities in 2007 and 2010.

TABLE 4-11: 2007, 2010 WALLA WALLA COE DISTRICT BARGE TONNAGE BY COMMODITY 2007 Walla Walla District Tonnage Totals by Commodity

Paper & Petroleum Wood (1,000 tons) Pulp Other Products Products All Grains Total 2007 Totals 454 1,235 2,416 1,373 13,448 18,926 % of Total 2% 7% 13% 7% 71% 2010 Walla Walla District Tonnage Totals by Commodity

Paper & Petroleum Wood (1,000 tons) Pulp Other Products Products All Grains Total 2010 Totals 84 893 1,836 974 11,087 14,874 % of Total 1% 6% 12% 7% 75% Source: Walla Walla District COE

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TABLE 4-12: GRAIN ELEVATORS WITH RIVER ACCESS ALONG THE SNAKE-COLUMBIA RIVER SYSTEM IN THE RTPO

Grain Facilities On The Columbia-Snake River System: Benton-Franklin-Walla Walla RTPO

Name of Facility Waterway Location Operator Purpose Rail Access BENTON COUNTY *Connell Grain Growers, Kennewick Dock Columbia River Kennewick Connell Grain Growers Shipment of grain Yes FRANKLIN COUNTY CLD Pacific Grain – Windust Elevator Dock Snake River Windust CLD Pacific Grain, LLC Shipment of grain No Tri Cities Grain Snake River Franklin Co Tri-Cities Grain, LLC Shipment of grain No WALLA WALLA COUNTY **CLD Pacific Grain- Burbank Elevator Barge Slip Snake River Burbank CLD Pacific Grain, LLC Shipment of grain Yes **Burbank Elevator Barge Slip Snake River Burbank Port of Walla Walla Shipment of grain Yes N.W. Grain Growers, Sheffler Elevator Barge Slip Snake River Walla Walla County Northwest Grain Growers Shipment of grain No N.W. Grain Growers, Port Wallula Pier Columbia River Wallula Northwest Grain Growers Shipment of grain Yes N.W. Grain Growers, Port Kelley Dock Columbia River Port Kelley Northwest Grain Growers Shipment of grain No

Source: Port Series No. 34, Port of Portland, OR and Ports on the Columbia-Snake River System, U. S. Army Corps of Engineers, 2003; Additional information from the Port of Pasco, the Port of Walla Walla and conversations with elevator operators.

* The Connell Grain Growers, Kennewick Dock facility has not received a grain shipment by rail since 2000.

** The CLD-Burbank Elevator Barge Slip and the Burbank Elevator Barge Slip are adjacent facilities. Both facilities have rail access, but no longer receive grain shipments by rail.

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Table 4-13 shows total barge tonnage by lock for Walla Walla District COE facilities in 2007 and 2010.

TABLE 4-13: 2007, 2010 WALLA WALLA COE DISTRICT BARGE TONNAGE BY LOCK 2007 Walla Walla District Tonnage Totals by Lock

Lower Little Lower (1,000 tons) McNary Ice Harbor Monumental Goose Granite Total Lock Total 7,351 3,611 3,268 2,933 1,763 18,926 % of Total 39% 19% 17% 15% 9% 2010 Walla Walla District Tonnage Totals by Lock

Lower Little Lower (1,000 tons) McNary Ice Harbor Monumental Goose Granite Total Lock Total 6,238 2,874 2,234 2,280 1,249 14,874 % of Total 42% 19% 15% 15% 8% Source: Walla Walla District COE

LOCAL PORT DISTRICTS - COLUMBIA RIVER FACILITIES

PORT OF PASCO INTERMODAL TERMINAL The Port of Pasco owns and manages the Big Pasco Industrial Center, which has nearly two miles of waterfront on the north side of the Columbia River upstream from the mouth of the Snake River. The Container Terminal is a multi-modal rail/barge facility on the Columbia River. The terminal provides docking, loading and unloading for grain and bulk commodity barges.

The facility has a fully operational container-handling terminal for loading and unloading containerized cargo. Rail facilities include 3000 feet of industrial track rail on two tracks and rail service to Seattle and Tacoma. The dock and yard area are served by a Port-owned rail spur connecting to the Burlington Northern Santa Fe. BNSF does all railcar switching.

PORT OF BENTON The Port has over 6,000 feet of Columbia River frontage zoned for heavy industrial use at their Richland Technology and Business Campus located on the west bank of the Columbia River in North Richland. Their dock facilities near the north end of the site are used to unload construction materials and heavy equipment, much of which is destined for Hanford, and other cargoes bound for North Richland.

PORT OF KENNEWICK The Port owns property zoned for heavy industrial use at various locations along a 12-mile stretch of the Columbia River in, adjacent to and southeast of Kennewick. Several private dock facilities are maintained and operated by industries located in the area. The port will soon construct a barge dock at their Hover site southeast of Finley. A 1,400-foot barge dock will also be built at the port’s riverfront site below McNary Dam at Columbia Mile 288.

PORT OF WALLA WALLA

Burbank Industrial Park Burbank Industrial Park is located on the confluence of the Columbia and Snake rivers approximately 35 miles west of the City of Walla Walla and six miles south of the City of Pasco, in Franklin County. The park is approximately 50 acres and zoned heavy industrial. Transportation access at the park

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includes a cargo dock, two barge slips and rail served by Burlington Northern. State Route 12 and US Highway 395 are nearby. Cargill Louis Dreyfus, Inc., Schnitzer Steel and Westway Feed currently utilize the park for the shipment of grain, steel and animal-feed supplements.

Wallula Junction Wallula Junction is located on the Columbia River approximately 30 miles west of the City of Walla Walla and 10 miles south of the City of Pasco, in Franklin County. Wallula Junction is approximately 25 acres and zoned industrial. Transportation access at the park includes a barge slips and rail served by Union Pacific Railroad. Northwest Grain Growers currently utilize Wallula Junction as a transload facility from rail to barge for the shipment of grain.

Port facilities in the RTPO are shown in Figure 4-14, (page 42).

PIPELINES The Benton, Franklin and Walla Walla County region is crossed by two interstate natural gas supply lines: Pacific Gas & Electric Transmission Company (PG&E) and Williams Northwest Pipeline Company; as well as a common carrier pipeline that transports refined petroleum products.

The PG&E network enters Washington near Spokane, works its south to Walla Walla County, the southeast corner of Benton County, and crosses into Oregon (see Figure 4-11). The facility extends from northern Alberta, Canada to the San Francisco Bay Area and consists of parallel 36 and 42- inch pipes.

The Williams Northwest Pipeline Company pipeline runs from Vancouver, B.C. to Vancouver, Washington, and up the Columbia River Gorge to Plymouth. There it branches into two lines. One serves the Tri-Cities and Spokane; the second serves the Yakima Valley and Wenatchee. The maximum pipe size is 30 inches. This system distributes natural gas to Washington’s seven utility companies for further distribution to customers. A branch line also extends into Walla Walla from Oregon. The Chevron Pipeline is a common carrier pipeline that transports refined petroleum products such as diesel and gasoline from Salt Lake City to Pasco and Spokane, where it connects with the Yellowstone Pipeline (Billings, Montana to Spokane and Moses Lake). Chevron’s pipeline consists of two, parallel, 6-inch lines up to Pasco, then an 8-inch line to Spokane. When demand exceeds supply for a given product in Pasco, additional product is barged up from Portland.

Olympic Pipeline Company conducted a feasibility study for an underground pipeline to transport refined petroleum products (gasoline, diesel, aviation fuel) from Western Washington refineries to Central and Eastern Washington. The line would have ascended over Snoqualmie Pass, traversed Kittitas and Grant Counties, then swung southerly through Franklin County to the fuel distribution facility east of Pasco. A connection to an existing pipeline near Pasco would have facilitated transporting fuels to Spokane. After reviewing the feasibility study, Olympic determined that although the project does have some merits, the extensive permitting process and cost to build the pipeline make it prohibitive.

Pipelines in the RTPO are shown in Figure 4-14.

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CHAPTER FIVE – DEMOGRAPHICS, POPULATION AND LAND USE

This chapter presents demographic, population, and land use information for the region. Comparative data on race and ethnicity, household income, and poverty are provided at the MSA and RTPO level. Population estimates are provided at city and county level with forecasts at county level. Data on race and ethnicity, household income, and poverty is from the American Community Survey. Population data is from the Washington State Office of Financial Management.

THE AMERICAN COMMUNITY SURVEY

The American Community Survey (ACS) is an ongoing survey that provides data every year instead of once a decade. It is released in one-year, three-year and five-year estimates, based on the population of the geographic unit being described. This chapter will present data from the ACS 2009 one-year estimate to describe and compare characteristics of the Kennewick-Pasco-Richland Standard Metropolitan Statistical Area (Benton and Franklin Counties) with other eastern Washington MSAs, and data from the 2007-2009 ACS three-year estimates to describe and compare characteristics of the RTPO over time.

THE TRI-CITIES METROPOLITAN STATISTICAL AREA

This section presents information on race and ethnicity, income and poverty for the Kennewick-Pasco-Richland (Tri-Cities) Metropolitan Statistical Area (MSA), comparing it to Washington State and the Spokane and Yakima Metropolitan Statistical Areas.

The MSA is a geographic entity defined by the federal Office of Management and Budget. An MSA requires the presence of a city with 50,000 or more inhabitants and includes the county or counties containing the largest city. The Tri-Cities MSA data is based on Benton and Franklin Counties, the Yakima MSA data is based on all of Yakima County, and the Spokane MSA data is based on Spokane County.

Population by Race and Ethnicity

Race is a survey self-identification data item in which respondents choose the race or races with which they most closely identify. Ethnicity refers to Hispanic/Latino origin, which is also self-identified.

In 1997, the Federal Office of Management and Budget revised the standards for how the Federal government would collect and present data on race and ethnicity. Origin can be viewed as the heritage, nationality group, lineage, or country of birth of the person or the person’s parents or ancestors before their arrival in the United States. People who identify their origin as Spanish, Hispanic, or Latino may be of any race.

To compound all of the above, some census respondents included themselves in both categories – as a person of race and as a person of ethnicity, thus double counting.

What this means is that “Race” and “Hispanic/Latino Origin” are very much apples and oranges, and must be treated as such. This report presents information on each group in the same chart so all racial and ethnic data may be viewed comparatively.

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Tables 5-1 and 5-2 show numerical estimates and percentages from the 2009 American Community Survey on race and ethnicity for Washington State and select MSAs. Figure 5-1 represents those percentages in a graph.

An outcome of the self-identification process and poor explanation within the reporting form, is that many Latinos identify themselves as “some other race” in addition to Hispanic/Latino”. This is evident especially in the Yakima MSA data, where nearly 20 percent of the respondents identified themselves as “some other race”.

TABLE 5-1: RACE AND ETHNICITY - WASHINGTON STATE AND SELECT MSAs Race and Ethnicity - Washington State and Select MSAs Tri-Cities MSA Spokane MSA Yakima MSA Washington Total: 245,649 468,684 239,054 6,664,195 White 186,730 423,203 168,609 5,342,426 Black or African American 3,020 7,376 2,535 229,534 American Indian/Alaska Native 1,959 4,599 9,451 87,973 Asian 5,431 10,555 2,438 441,231 Native Hawaiian/Other Pacific Islander 201 1,132 217 29,770 Some other race 40,233 4,489 46,389 249,828 Two or more races: 8,075 17,330 9,415 283,433 Hispanic or Latino 67,372 19,651 101,343 687,364 Source: U.S. Census Bureau, 2009 American Community Survey

TABLE 5-2: RACE AND ETHNICITY BY PERCENT - WASHINGTON STATE AND SELECT MSAs Race and Ethnicity by Percent - Washington State and Select MSAs Tri-Cities MSA Spokane MSA Yakima MSA Washington Total: 100% 100% 100% 100% White 76.01% 84.55% 70.53% 80.17% Black or African American 1.23% 0.00% 1.06% 3.44% American Indian/Alaska Native 0.80% 1.19% 3.95% 1.32% Asian 2.21% 0.75% 1.02% 6.62% Native Hawaiian/Other Pacific Islander 0.08% 0.15% 0.09% 0.45% Some other race 16.38% 10.99% 19.41% 3.75% Two or more races: 3.29% 2.36% 3.94% 4.25% Hispanic or Latino 27.43% 25.09% 42.39% 10.31% Source: U.S. Census Bureau, 2009 American Community Survey

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FIGURE 5-1: RACE AND ETHNICITY BY PERCENT - WASHINGTON STATE AND SELECT MSAs

Race and Ethnicity - Washington State and Select MSAs

100% 80% 60% 40% 20% 0% White Black or American Asian Native Some Two or Hispanic or African Indian and Hawaiian other Race more races Latino American Alaska or Other Native Pacific Islander Tri-Cities Spokane Yakima Washington

Source: U.S. Census Bureau, 2009 American Community Survey

Income and Poverty

Tables 5-3 and 5-4, and Figure 5-2 show data from the 2009 American Community Survey on household income for Washington State and select MSAs.

TABLE 5-3: HOUSEHOLD INCOME STATUS - WASHINGTON STATE AND SELECT MSAs Household Income Status - Washington State And Select MSAs Tri-Cities MSA Spokane MSA Yakima MSA Washington Total: 82,323 185,827 79,998 2,559,288 Less than $10,000 to $29,999 20,692 61,341 29,088 647,009 $30,000 to $49,999 16,835 39,195 18,269 488,310 $50,000 to $99,999 27,155 56,904 22,769 840,863 $100,000 or more 17,641 28,387 9,872 583,106 Source: U.S. Census Bureau, 2009 American Community Survey

TABLE 5-4: HOUSEHOLD INCOME STATUS BY PERCENT- WASHINGTON STATE AND SELECT MSAs Household Income Status by Percentage - Washington State And Select MSAs Tri-Cities MSA Spokane MSA Yakima MSA Washington Total: 100% 100% 100% 100% Less than $10,000 to $29,999 25% 33% 36% 25% $30,000 to $49,999 20% 21% 23% 19% $50,000 to $99,999 33% 31% 28% 33% $100,000 or more 21% 15% 12% 23% Source: U.S. Census Bureau, 2009 American Community Survey

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FIGURE 5-2: HOUSEHOLD INCOME STATUS BY PERCENT - WASHINGTON STATE AND SELECT MSAs Household Income Status - Washington State and Select MSAs

40% 35% 30% 25% 20% 15% 10% Tri-Cities 5% Spokane 0% Less than $30,000 to $50,000 to $100,000 or Yakima $10,000 to $49,999 $99,999 more Washington State $29,999

Source: U.S. Census Bureau, 2009 American Community Survey

Tables 5-5 and 5-6, and Figure 5-3 show data from the 2009 American Community Survey on income below poverty for Washington State and select MSAs.

TABLE 5-5: INCOME STATUS BELOW POVERTY LEVEL-WASHINGTON STATE AND SELECT MSAs Income Status Below Poverty Level - Washington State and Select MSAs Tri-Cities MSA Spokane MSA Yakima MSA Washington Total Population 243,402 452,683 235,132 6,530,664 Income Below Poverty Level 32,552 67,047 52,288 804,237 Source: U.S. Census Bureau, 2009 American Community Survey

TABLE 5-6: INCOME STATUS BELOW POVERTY LEVEL BY PERCENT - WASHINGTON STATE AND SELECT MSAs Income Status Below Poverty Level by Percent - Washington State and Select MSAs Tri-Cities MSA Spokane MSA Yakima MSA Washington Total Population 100% 100% 100% 100% Income Below Poverty Level 13.37% 14.81% 22.24% 12.31% Source: U.S. Census Bureau, 2009 American Community Survey

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FIGURE 5-3: INCOME STATUS BELOW POVERTY LEVEL BY PERCENT - WASHINGTON STATE AND SELECT MSAs

Persons of Poverty Status ‐ Washington State and Select MSA's

25% Tri‐Cities 20% Spokane 15% Yakima 10% Washington

5%

0% Income Below Poverty Level

Source: U.S. Census Bureau, 2009 American Community Survey

THE RTPO - BENTON, FRANKLIN AND WALLA WALLA COUNTIES

This section presents information on race and ethnicity, income and poverty for the RTPO planning area, comparing data from Washington State and Benton, Franklin and Walla Walla Counties. As mentioned above, this data is from the 2007-2009 American Community Survey.

Race and Ethnicity

Tables 5-7 and 5-8, and Figure 5-4 compare data from the 2009 American Community Survey on race and ethnicity for Washington State and the RTPO counties.

TABLE 5-7: RACE AND ETHNICITY - WASHINGTON STATE AND RTPO COUNTIES Race And Ethnicity - Washington State And RTPO Counties Franklin Walla Walla Benton County Washington County County Total: 163,919 73,353 58,239 6,565,082 White 138,190 43,717 49,482 5,270,605 Black or African American 2,154 1,453 770 223,745 American Indian and Alaska Native 1,890 746 515 91,614 Asian 3,901 1,402 993 434,407 Native Hawaiian and Other Pacific Islander 115 0 300 29,259 Some other race 12,862 24,148 4,912 255,256 Two or more races: 4,807 1,887 1,267 260,196 Hispanic or Latino 26,984 36,435 10,763 654,879 Source: U.S. Census Bureau, 2007-2009 American Community Survey

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TABLE 5-8: RACE AND ETHNICITY BY PERCENT - WASHINGTON STATE AND RTPO COUNTIES

Race And Ethnicity by Percent - Washington State and RTPO Counties Franklin Walla Walla Benton County Washington County County

Total: 100.00% 100.00% 100.00% 100.00% White 84.30% 59.60% 84.96% 80.28% Black or African American 1.31% 1.98% 1.32% 3.41% American Indian and Alaska Native 1.15% 1.02% 0.88% 1.40% Asian 2.38% 1.91% 1.71% 6.62% Native Hawaiian and Other Pacific Islander 0.07% 0.00% 0.52% 0.45% Some other race 7.85% 32.92% 8.43% 3.89% Two or more races: 2.93% 2.57% 2.18% 3.96% Hispanic or Latino 16.46% 49.67% 18.48% 9.98% Source: U.S. Census Bureau, 2007-2009 American Community Survey

FIGURE 5-4: RACE AND ETHNICITY BY PERCENT - WASHINGTON STATE AND RTPO COUNTIES Race and Ethnicity - Washington State and RTPO Counties

90% 80% 70% 60% 50% 40% 30% 20% 10% 0% White Black or American Asian Native Some Two or Hispanic or African Indian and Hawaiian other Race more races Latino American Alaska or Other Native Pacific Islander

Benton County Franklin County Walla Walla County Washington State

Source: U.S. Census Bureau, 2007-2009 American Community Survey

Income and Poverty

Tables 5-9 and 5-10, and Figure 5-5 show data from the 2009 American Community Survey on household income for Washington State and the RTPO counties.

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TABLE 5-9: HOUSEHOLD INCOME STATUS - WASHINGTON STATE AND RTPO COUNTIES Household Income Status - Washington State And RTPO Counties Benton County Franklin County Walla Walla County Washington Total: 59,389 20,696 20,831 2,537,656 Less than $10,000 to $29,999 14,928 6,646 6,660 621,918 $30,000 to $49,999 11,719 4,271 5,123 485,716 $50,000 to $99,999 18,806 6,922 5,681 845,222 $100,000 or more 13,936 2,857 3,367 584,800 Source: U.S. Census Bureau, 2007-2009 American Community Survey

TABLE 5-10: HOUSEHOLD INCOME STATUS BY PERCENTAGE - WASHINGTON STATE AND RTPO COUNTIES Household Income Status by Percent - Washington State And RTPO Counties Benton County Franklin County Walla Walla County Washington Total: 100% 100% 100% 100% Less than $10,000 to $29,999 25% 32% 32% 25% $30,000 to $49,999 20% 21% 25% 19% $50,000 to $99,999 32% 33% 27% 33% $100,000 or more 23% 14% 16% 23% Source: U.S. Census Bureau, 2007-2009 American Community Survey

FIGURE 5-5: HOUSEHOLD INCOME STATUS BY PERCENT - WASHINGTON STATE AND RTPO COUNTIES Household Income Status - Washington State and RTPO Counties

35% 30% 25% 20% 15% 10% Benton County 5% Franklin County 0% Walla Walla County

Washington State

Source: U.S. Census Bureau, 2007-2009 American Community Survey

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Tables 5-11 and 5-12, and Figure 5-6 contrast data from the 2009 American Community Survey on income below poverty for Washington State and the RTPO counties.

TABLE 5-11: INCOME STATUS BELOW POVERTY LEVEL-WASHINGTON STATE AND RTPO COUNTIES Persons Of Poverty Status - Washington State And RTPO Counties Benton County Franklin County Walla Walla County Washington Total 161,623 72,217 53,921 6,432,264 Income Below Poverty Level 19,545 13,411 10,003 757,288 Source: U.S. Census Bureau, 2007-2009 American Community Survey

TABLE 5-12: INCOME STATUS BELOW POVERTY LEVEL BY PERCENT - WASHINGTON STATE AND RTPO COUNTIES

Persons Of Poverty Status - Washington State and RTPO Counties Benton County Franklin County Walla Walla County Washington Total 100% 100% 100% 100% Income Below Poverty Level 12% 19% 19% 12% Source: U.S. Census Bureau, 2007-2009 American Community Survey

FIGURE 5-6: INCOME STATUS BELOW POVERTY LEVEL BY PERCENT - WASHINGTON STATE AND RTPO COUNTIES Persons of Poverty Status ‐ Washington State and RTPO Counties by Percent

20% Benton County 15% Franklin County Walla Walla County 10% Washington State

5%

0% Income Below Poverty Level

Source: U.S. Census Bureau, 2007-2009 American Community Survey

POPULATION PROJECTIONS

This section contains population data developed by the Washington State Office of Financial Management (OFM). OFM generates county-level population estimates to be used for planning purposes under the Growth Management Act. Projections are developed for “High”, “Medium”, and “Low” ranges of population growth. The data contained in the tables and figures below contrast the medium and high set of growth projections developed by OFM in 2007.

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Table 5-13 shows the OFM “medium” estimated population increase between 2000 -2030 for Benton, Franklin and Walla Walla Counties and the RTPO as a whole. Figure 5-7 graphs the same data. Benton County is projected to grow by about 40 percent, Franklin County by 125 percent and Walla Walla County by 27 percent. RTPO population as a whole is projected to grow by 53 percent.

Figure 5-7 charts the data in Table 5-13.

TABLE 5-13: ESTIMATED 2000-2030 RTPO POPULATION GROWTH - OFM MEDIUM SERIES 2000-2030 Estimated Total Population Growth 2000 2005 2010 2015 2020 2025 2030 Benton 142,475 158,100 168,839 176,854 184,704 192,131 198,528 Franklin 49,347 60,500 70,038 80,348 90,654 100,666 109,861 Walla Walla 55,180 57,500 60,840 63,139 65,593 67,895 69,828 RTPO 247,002 276,100 299,717 320,341 340,951 360,692 378,217 Source: 2007 OFM State Growth Management Population Projections for Counties

FIGURE 5-7: ESTIMATED 2000-2030 RTPO POPULATION GROWTH - OFM MEDIUM SERIES OFM Population Estimates Medium Series 400,000

350,000

300,000

250,000 Benton County 200,000 Franklin County 150,000 Walla Walla County RTPO Total 100,000

50,000

0 2000 2005 2010 2015 2020 2025 2030

Source: 2007 OFM State Growth Management Population Projections for Counties

Table 5-14 shows the OFM “high” estimated population increase between 2000 -2030 for Benton, Franklin and Walla Walla Counties and the RTPO as a whole. Figure 5-8 graphs the same data. Benton County is projected to grow by about 74 percent, Franklin County by 180 percent and Walla Walla County by 52 percent. RTPO population as a whole is projected to grow by 90 percent.

Figure 5-8 charts the data in Table 5-14.

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TABLE 5-14: ESTIMATED 2000-2030 RTPO POPULATION GROWTH - OFM HIGH SERIES

2000-2030 Total Population Growth High Series 2000 2005 2010 2015 2020 2025 2030 Benton 142,475 158,100 188,931 203,736 218,874 234,015 248,358 Franklin 49,347 60,500 79,843 93,947 108,649 123,593 138,096 Walla Walla 55,180 57,500 67,046 71,189 75,629 80,015 84,073 RTPO 247,002 276,100 335,820 368,872 403,152 437,623 470,527 Source: 2007 OFM State Growth Management Population Projections for Counties

FIGURE 5-8: ESTIMATED 2000-2030 RTPO POPULATION GROWTH - OFM HGH SERIES OFM Population Estimates High Series 500,000 450,000 400,000 350,000 300,000 Benton County 250,000 Franklin County 200,000 Walla Walla County 150,000 RTPO Total 100,000 50,000 0 2000 2005 2010 2015 2020 2025 2030

Source: 2007 OFM State Growth Management Population Projections for Counties

POPULATION TRENDS

In addition to providing GMA population projections, OFM annually produces population estimates that often are the basis for distribution of selected state and federal revenues. These estimates reflect annual annexations and growth, while being adjusted to mirror results obtained from each decennial census or a state certified special census.

Attention to annual estimates is important when validating growth trends and projections. The most recent population estimates (April 1, 2011) show an RTPO increase of nearly sixty- seven thousand people over the 2001-2011 decade. This equates to an increase of 26.7% for the three-county region.

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Growth rates vary widely by both city and county jurisdictions with Benton, Franklin, and Walla Walla counties realizing decade long growth rates of 22.9%, 59.7%, and 6.5% respectively. In the Tri-City metropolitan area, the cities of Kennewick, Pasco, and Richland now appear in the top-twenty most populated cities in Washington State. Conversely, some of the smaller jurisdictions in the rural areas have experienced periods of slow growth, or even decline.

Table 5-15 shows annual OFM estimates for RTPO cities/counties for the 2001-2011 period. The final two columns show the change in population and percentage change for that period.

TABLE 5-15: OFM April 1st Annual Population Estimates, 2001-2011 BENTON-FRANKLIN-WALLA WALLA RTPO POPULATION 2001-2011 Pop Change % Change JURISDICTION 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010* 2011 2001-2011 2001-2011 Benton City 2,720 2,725 2,790 2,815 2,840 2,840 2,860 2,855 2,955 3,038 3,145 425 15.6% Kennew ick 55,780 56,280 57,900 58,970 60,410 61,770 62,520 65,860 67,180 73,917 74,665 18,885 33.9% Pr os s er 4,865 4,905 4,940 4,985 5,045 5,045 5,075 5,075 5,110 5,714 5,780 915 18.8% Richland 39,350 40,150 41,650 42,660 43,520 44,230 45,070 46,080 47,410 48,058 49,090 9,740 24.8% West Richland 8,735 8,930 9,355 9,840 10,210 10,520 10,850 11,180 11,670 11,811 12,200 3,465 39.7% Incorporated 111,450 112,990 116,635 119,270 122,025 124,405 126,375 131,050 134,325 142,538 144,880 33,430 30.0% Unincorporated 33,350 34,610 34,965 35,830 36,075 36,195 36,525 34,450 34,975 32,639 33,020 (330) -1.0% Benton Co. Total 144,800 147,600 151,600 155,100 158,100 160,600 162,900 165,500 169,300 175,177 177,900 33,100 22.9% Connell 2,970 3,100 3,190 3,195 3,195 3,200 3,205 3,255 3,430 4,209 5,150 2,180 73.4% Kahlotus 215 215 215 220 220 220 220 215 220 193 190 (25) -11.6% Mes a 440 440 440 440 440 440 440 440 455 489 495 55 12.5% Pas c o 33,010 34,630 37,580 40,840 44,190 47,610 50,210 52,290 54,490 59,781 61,000 27,990 84.8% Incorporated 36,635 38,385 41,425 44,695 48,045 51,470 54,075 56,200 58,595 64,672 66,835 30,200 82.4% Unincorporated 13,765 12,915 12,175 12,305 12,455 12,730 13,325 14,000 14,105 13,491 13,665 (100) -0.7% Franklin Co. Total 50,400 51,300 53,600 57,000 60,500 64,200 67,400 70,200 72,700 78,163 80,500 30,100 59.7% College Place 7,945 8,035 8,165 8,560 8,690 8,770 8,860 8,935 9,035 8,765 8,780 835 10.5% Pr es c ott 315 315 310 315 315 315 315 315 320 318 320 5 1.6% Waitsburg 1,205 1,210 1,210 1,210 1,230 1,230 1,230 1,230 1,245 1,217 1,215 10 0.8% Walla Walla 29,500 29,550 29,710 30,500 30,630 30,660 30,900 31,350 31,610 31,731 31,670 2,170 7.4% Incorporated 38,965 39,110 39,395 40,585 40,865 40,975 41,305 41,830 42,210 42,031 41,985 3,020 7.8% Unincorporated 16,235 16,290 16,405 16,115 16,635 16,925 16,995 16,770 16,990 16,750 16,815 580 3.6% Walla Walla Co. Total 55,200 55,400 55,800 56,700 57,500 57,900 58,300 58,600 59,200 58,781 58,800 3,600 6.5% RTPO Incorporated Total 187,050 190,485 197,455 204,550 210,935 216,850 221,755 229,080 235,130 249,241 253,700 66,650 35.6% RTPO Unincorporated Total 63,350 63,815 63,545 64,250 65,165 65,850 66,845 65,220 66,070 62,880 63,500 150 0.2% RTPO Total 250,400 254,300 261,000 268,800 276,100 282,700 288,600 294,300 301,200 312,121 317,200 66,800 26.7%

Source: Office of Financial Management, April 1, 2011 Population determinations for cities, tow ns, and counties. 2010 population numbers are based on the Census.

Additionally, OFM annually provides population estimates for the Highway Urban Areas. Table 5-16 shows the OFM annual estimates for the two urban areas. Population estimates for the Tri-City urban area show growth at rates roughly between the Medium and High-Series OFM GMA forecasts. Further discussion about growth projections for the Tri-City area can be found in the modeling discussion in Chapter 6. Table 5-16 below summarizes a decade of OFM Highway Urban Area population estimates for the Tri-Cities and Walla Walla Urban areas.

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TABLE 5-16: OFM Fall 2011 Highway Urban Area Population Estimates, 2001-2011

Kennewick/Pasco/Richland - Highway Urban Area (HUA) Population 2001-2011 Pop Change % Change Pop Change % Change JURISDICTION 2001 2002 2003 2004 2005 2006 2007 2008 2009 *2010 *2011 2001-2011 2001-2011 2010-2011 2010-2011 Kennew ick 55,780 56,280 57,900 58,970 60,410 61,770 62,520 65,860 67,180 73,917 74,665 18,885 33.9% 748 1.0% Richland 39,350 40,150 41,650 42,660 43,520 44,230 45,070 46,080 47,410 48,058 49,090 9,740 24.8% 1,032 2.1% West Richland 8,735 8,930 9,355 9,840 10,210 10,520 10,850 11,180 11,670 11,811 12,200 3,465 39.7% 389 3.3% Pasco 33,010 34,630 37,580 40,840 44,190 47,610 50,210 52,290 54,490 59,781 61,000 27,990 84.8% 1,219 2.0% HUA Benton County 19,760 19,135 18,480 19,215 18,524 17,515 17,685 15,210 15,330 15,499 14,406 (5,354) -27.1% (1,093) -7.1% HUA Franklin County 5,200 4,400 2,390 2,905 3,312 3,205 3,530 3,875 4,245 4,150 4,033 (1,167) -22.4% (117) -2.8% HUA Walla Walla County N/A N/A 2,445 2,855 2,605 2,535 2,560 2,980 2,990 3,014 2,832 N/A N/A (182) -6.0% TOTAL 161,835 163,525 167,355 177,285 182,771 187,385 192,425 197,475 203,315 216,230 218,226 56,391 34.8% 1,996 0.9%

Walla Walla/College Place - Highway Urban Area (HUA)) Population 2001-2011 Pop Change % Change Pop Change % Change JURISDICTION 2001 2002 2003 2004 2005 2006 2007 2008 2009 *2010 *2011 2001-2011 2001-2011 2010-2011 2010-2011 Walla Walla 29,500 29,550 29,710 30,500 30,630 30,660 30,900 31,350 31,610 31,731 31,670 2,170 7.4% (61) -0.2% College Place 7,945 8,035 8,165 8,560 8,690 8,770 8,860 8,935 9,035 8,765 8,780 835 10.5% 15 0.2% Walla Walla County 5,780 5,235 4,490 4,674 4,590 4,925 5,050 5,195 5,266 5,567 (213) -3.7% 301 5.7% TOTAL 43,225 43,110 43,550 43,994 44,020 44,685 45,335 45,840 45,762 46,017 2,792 6.5% 255 0.6%

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CHAPTER SIX – TRI-CITIES AREA TRAFFIC MODEL

INTRODUCTION

A regional travel demand model consists of a computerized transportation network that is coupled with existing land use data to replicate movement on the transportation system. The models inputs are then adjusted to future year forecasts to allow planners and engineer’s evaluation of expected performance of the system, as well as consider impacts of alternate land use scenarios or mode choice behaviors and their impacts to the transportation system. As such, a travel demand model provides a valuable tool of support in the development of local and regional plans.

The Benton-Franklin Council of Governments (BFCG) first constructed a travel demand model using TModel software in 1994. This model was the basis for subsequent updates made during 1997 and 2001. In June of 2004, a committee of local representatives selected Caliper Corporation’s TransCAD as the region’s new travel demand modeling platform followed by conversion to that platform during 2005-06. In anticipation of the 2011 Regional Transportation Plan, efforts began in 2010 to update the 2005 model effort to a 2010 base year with updated forecasts closely matching the twenty-year timeframe of this plan.

The 2010 Tri-Cities Travel Demand Model is representative of vehicular traffic characteristics during a typical PM peak hour weekday during 2010. The model area includes the entire Tri- City metropolitan area, including cities of Richland, West Richland, Kennewick, Pasco, as well as surrounding unincorporated areas on the metropolitan fringe. The fringe areas are expected to become urban in nature within the timeframe of this plan, and are included to allow evaluation of area facilities. These areas include: Finley, Badger Road, Red Mountain vicinity, portions of Franklin County north of the Pasco UGA, and Burbank area in Walla Walla County. In addition, the model areas includes the entire Hanford Nuclear Reservation due to its’ significant employment levels and the associated impact on local traffic patterns. In all, the model area encompasses over 650 square miles of territory.

MODEL ASSUMPTIONS

Outside factors at the local, regional, and global levels can have dramatic impact upon the choices travelers make. For the BFCG model, it was necessary to make some general assumptions regarding growth and other factors that have impacts upon travel behavior. These assumptions should be reviewed for their accuracy and adjusted, if needed, in subsequent model efforts.

Economy: It was assumed that no major economic fluctuations would occur at the global, national, or regional levels. Current regional economic trends were assumed to continue.

Growth: The region has seen significant population growth in recent years. It was assumed the area would continue to grow at a pace between “medium” and “high” GMA forecast levels.

Mode Split: The modal split shows what types of transportation people use when traveling. Currently, the modal split in the Tri-Cities is 76% drive-alone, 16% carpool or vanpool (HOV),

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TRI-CITIES POPULATION AND EMPLOYMENT FORECASTS

In a travel demand model, the “trips” seen upon the transportation network are estimated by associating different production and attraction rates to an assortment of land uses. For example, a retail use would attract and produce more trips than a similar sized residential development. The model area is broken into smaller geographic units, called Transportation Analysis Zones (TAZs), which allows the model to estimate trips produced and trips attracted to each TAZ and the routes between. The BFCG Travel Demand Model area is split into 229 TAZs, which can be seen in Figure 6-1 below. In general, TAZs are more defined in areas of greater development with larger TAZs found in areas with less development, or upon the model fringe. To the northwest of the area shown in the graphic, is the Hanford Nuclear Reservation (TAZ 34) - over 360 square miles in area and exceeding the remainder of the model area in size.

FIGURE 6-1, TRI-CITY METROPOLITAN AREA TAZ STRUCTURE

Area planners were asked to provide housing and employment information for every TAZ, beginning with the base-year (2010) and later providing forecasts for 2020 and 2030. It was agreed a population growth rate between OFM’s Medium and High series GMA Projections

Page 6-2 Benton-Franklin Council of Governments 2011-2030 Regional Transportation Plan would be used with growth distributed between jurisdictions proportionately. Employment forecasts – both with regard to levels and locations - were individual to each participating jurisdiction. Forecasts were consistent with available lands, local zoning, and comprehensive plans. BFCG staff worked with officials from Mission Support Alliance (Hanford) and Pacific Northwest National Labs for individual forecasts specific to these large area employers. The compiled data represent the latest available estimates for population, land use, employment levels and economic activity in the area. The thirteen land use categories used in the model are shown in Table 6-1 below, while a complete table showing the forecasted land-use quantities by TAZ and scenario year can be found in Appendix E.

TABLE 6-1, LAND USE CATEGORIES

LU1 Single-family Dwelling Units Dwelling Units LU2 Multi-family Dwelling Units Dwelling Units LU3 Industrial/Manufacturing Employees LU4 Retail Employees LU5 FIRESG (Finance, Insurance, Real Estate, Service, Government) Employees LU6 Regional Mall Employees LU7 Airport Employees LU8 Schools (High Schools, Colleges, Trade) Students LU9 Hanford: Onsite Employees LU10 Pacific Northwest National Labs & Hanford “Inner” Employees LU11 Offices Employees LU12 Hotel/Motel Rooms LU13 Assisted Living/Nursing Facilities Rooms

A summary of population forecasts are shown in table 6-2, by individual jurisdiction and the complete model area. Population totals are anticipated to increase by over forty-eight thousand individuals in the next decade, and nearly one-hundred thousand by the year 2030. The levels projected would result in a 22.7 % increase in population by 2020, and a 45% increase by 2030 – similar to rates realized in the previous decade for the area.

TABLE 6-2, POPULATION FORECASTS BY AGENCY AND YEAR

West Walla Walla Model Year Richland Kennewick Richland Benton Co Pasco Franklin Co Co Area

2010 48,708 68,661 11,673 18,244 61,578 1,694 3,419 213,977

2020 61,261 82,502 14,292 24,967 73,828 1,574 4,119 262,542

2030 74,183 95,601 17,179 29,205 87,752 1,816 4,768 310,504

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The distribution of new population into the model area is best portrayed by showing where new dwelling units are anticipated. By the year 2030, model data reflect an increase in over twenty-eight thousand single-family units and an additional 7,300 multi-family units to be built. Figure 6-2 portrays the expected increase and location of where new dwelling units are expected over the twenty-year period.

FIGURE 6-2, PROJECTED GROWTH IN DWELLING UNITS, BY TAZ

Employment forecasts indicate moderate growth expected in most TAZs, with the greatest concentrations of new employers to be located in the following areas: Horn Rapids “triangle”, Richland Airport vicinity, Badger Mountain sub-area, Southridge sub-area (adjacent to SR 395), and the Pasco Processing facility adjacent SR 395.

Over half of the projected increase in employment is attributed to retail sector growth, followed by industrial/manufacturing jobs and then jobs within the service sector. Area high schools, trade schools, and colleges are expected to see enrollment increase by nearly eight thousand (36% increase) by the year 2030 – primarily in existing campus locations. A few TAZs are expected to see decreases in total employment, due to their heavy percentage of

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Hanford-related employment. In 2010, nearly eighteen thousand employees worked for contractors or their subcontractors upon Hanford Site related jobs. As the Hanford nuclear clean-up mission progresses, officials with Mission Support Alliance (Hanford) have indicated a reduction of approximately 3700 jobs could be expected by the year 2020, and a total of 6700 jobs would be cut by 2030. In total, the model area is expected to see an overall increase of approximately eighteen thousand jobs by the year 2030. The projected change in total employment, by TAZ, can be seen in figure 6-3.

FIGURE 6-3, PROJECTED CHANGE IN EMPLOYMENT, BY TAZ

MODEL DEVELOPMENT

As mentioned earlier in the chapter, trips between TAZs are approximated by applying varying production and attraction rates to the different land use category values in a process called Trip Generation. “Origin” and “Destination” trips are then totaled by TAZ, determining the number of total trips entering and leaving each TAZ. Travel between TAZs is completed on a roadway network built to match existing conditions.

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The model network consists of all roadways classified as collector or above on the functional class system, with select local roadways added at to allow sufficient connectivity in the model network. Roadways are built into the model as a series of links, matching their actual alignment and given characteristics as to their speed, number of lanes, capacity, and classification. Due to the large number of links contained in the model, it is not reasonable to complete individual link capacity analyses. As in most regional models, a global link capacity system was adopted, with capacities adjusting based upon the classification, number of lanes, and presence of turn lanes. Additionally, actual traffic count data is entered, by direction, for links throughout the model area. In the 2010 BFCG model, nearly 1200 individual counts were used to calibrate the model flows against 2010 traffic volumes.

The beginning and end points of each link are called nodes. A node can be an intersection, a zone centroid, or an intermediate point between intersections. A zone centroid is simply the point from which the total trips calculated during trip generation will travel. From the zone centroid, trips are loaded out onto the road network by a series of connectors, designed to match access from local streets not in the model network. By loading the trips at multiple locations, the model is able to replicate a more realistic assignment. Nodes are coded to reflect the operating characteristics of that node – whether it be a stop sign, a traffic signal, or other control device. As with link capacities, a global intersection delay system is applied where traffic controls devices are present. Delays vary dependent upon the classification of roadway approaching, as well as the turning direction. For example, a stop sign on a minor roadway would expect more delay than upon the major arterial. Or, a left turn movement would expect more of a delay than a right turn.

With these elements in place, the simulation runs of the model began. Traffic will flow through the model to its destination using the path of least resistance or, put another way, roadways with higher speed and greater capacity will be used until they become congested. At the point of congestion, alternate routes are found. Ideally, the model outputs would exactly match all of the traffic counts across the network. In actuality, only a close approximation of the traffic patterns and volumes is realistic. Efforts are made to ensure roadways of higher classification are modeled more accurately. A series of simulation runs (calibration) are made with examination of the results between each run. Entered data, rates, or assumptions are all reviewed and adjustments made until the model produces volumes that approximate actual traffic volumes within an acceptable level of error. The acceptable level of error for calibrated model data has been recommended in National Cooperative Highway Research Program Report No. 255 entitled Highway Traffic Data for Urbanized Area Project Planning and Design (NCHRP 255).

CALIBRATION RESULTS

The results of the calibration process are detailed by a number of statistical measures and observations. R2, the correlation coefficient, measures how well model volumes correlate with traffic count observations at the same locations. Figure 6-4, on the following page, shows actual 2010 traffic counts on the X-axis and assigned model volumes on the Y-axis. The diagonal 'goal' line shows where an assignment volume would equal the ground count, or an R2 equal to 1.00. The R2 of the 2010 BFCG model is 0.89. The recommended standard is 0.88 or above as described in FHWA, “Calibration and Adjustment of System Planning Models”, 1990.

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FIGURE 6-4, CORRELATION COEFFICIENT (R-SQUARED)

3600 3200 2800 2400 2000 Model Target 1600 0.89 0.88 1200 800 400 0 0 400 800 1200 1600 2000 2400 2800 3200 3600

The %RMSE (Root Mean Square Error) essentially measures the amount of scatter about the observed traffic count values by the model produced volumes. NCHRP Report 365 recommends a %RMSE of between 30% and 50%. Experienced modelers, who correspond through the Transportation Model Improvement Project (TMIP), sponsored by the US Department of Transportation recommend a value of 40% or less. The 2010 BFCG model has a %RMSE of 32.3% for all links, with %RMSE measures of 14.6%, 31.8%, and 33.0% for Freeways & Expressways, Principal Arterials & Ramps, and Minor Arterials respectively. Only the collector classification was below the suggested %RMSE range, measuring 53.3%. The higher error associated with the collector classification is due to the large number of counts entered and the lower volumes generally seen upon collector roadways. This model exceeds the recommended standard and improves upon the previous model.

During calibration, observations were made ensuring the average trip length by trip type was comparable to other areas of similar size. Node delay values were adjusted to achieve desired movements at key area intersections. In addition, screen lines were established at key model locations, such as rivers and major dividing corridors, to ensure major travel patterns were being replicated by model flows.

The FHWA “Calibration and Adjustment of System Planning Models” (1990) document recommends maximum average deviations (differences between link volume counts and model volumes) for groups of links by functional classification. Table 6-3 presents the percent errors by functional class as well as corresponding results from the 2005 model effort.

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TABLE 6-3, PERCENT ERROR BY FUNCTIONAL CLASS (MODEL WIDE)

Max. % 2010 2005 Classification Validation Deviation* % Deviation % Deviation

Freeway/Expressways Less than +/- 7% 0% -1%/-4% PASS

Principal/Ramps Less than +/- 10% -2% 2%/-12% PASS

Minor Less than +/- 15% -5% -5% PASS

Collector Less than +/- 25% 7% -10% PASS

This updated model represents improvements in all measures and meets or exceeds all of the recommended statistical measures, while implementing key improvements to link capacities and node delays. The model represents the Tri-Cities traffic flow patterns well and can be a useful tool in the analysis of future projects and traffic volumes. As with any forecast model, it is important to confirm the validity of model assumptions when looking at future year forecasts. It is also important to evaluate the base-year (calibration) results as they relate to actual volumes. If model results vary beyond acceptable error in a specific location, it is likely future forecasts would mirror those trends at that same local. The strength of a Regional Travel Demand Model is in its’ evaluation of corridor-based volumes and regional trends, not necessarily specific movements upon any one link or intersection. In these instances, a more appropriate “micro-level” tool such as highway capacity software, Synchro, or other package would be better suited for this type of evaluation.

i 2008 ACS, US Census Bureau

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CHAPTER SEVEN – MODEL RESULTS & METROPOLITAN TRANSPORTATION SYSTEM EVALUATION INTRODUCTION

After the model is calibrated to existing traffic volumes, it is then possible to evaluate what effects planned road projects and growth patterns will have upon the road network. This is achieved by using projected land use data - as described in Chapter Six - coupled with road improvements planned by local jurisdictions. As with all models, they are a tool to evaluate the impacts of future change. It is important to recognize the strength of a regional model is in the evaluation of corridor-based volumes and regional trends. Attention should be given to those corridors that show multiple points of congestion, rather than single segments. Specific spot forecasts and evaluation are better left to micro-level evaluation through other means.

The 2010 Tri-City Travel Demand Model focuses on four alternative scenarios for future analysis of area roadways:  2020 No-Build – 2020 land use, with no new projects  2020 Build – 2020 land use, with 2020 list of projects  2030 No-Build – 2030 land use, with no new projects  2030 Build – 2030 land use, with 2020 and 2030 list of projects

The model replicates traffic patterns during a typical weekday PM peak-hour of travel for the scenario year. This chapter will detail the findings of the above scenarios, as well as the results of the base year (2010). The modeling horizon corresponds to “best available” data that drive the model. Year 2030 forecasts are felt to be an accurate representation of the plan’s 2032 horizon year. Alternatively, a growth factor (2.5 to 3%/yr) could be applied to 2030 forecasts. Forecast volumes are meant to illustrate trends and not absolute flows. It is important to remember that while the model is calibrated well to regional volumes, there may be some areas of congestion which may not appear in model results. Conversely, there may be some locations where the model may reflect congested conditions where none exist. Additionally, there may be areas where congestion is prominent during a different period of day, than the PM peak-hour. In these instances, BFCG staff and local jurisdictions have reviewed results and have separately listed known areas of concern that may not otherwise appear in the evaluation.

FINANCIALLY CONSTRAINED PROJECT LISTS

The “build” scenarios for 2020 and 2030 were completed using corresponding land use forecasts for that particular year, coupled with an assortment of road improvements projected to be built by local jurisdictions. These “Project Listings” are unique to each jurisdiction and have been reviewed for consistency with local agency Transportation Improvement Programs (TIPs), local comprehensive plans, and assorted sub-area plans. Projects have been identified by local agency staff, while being constrained by projected available revenues. A detailed explanation of the financial forecast, and its’ relation to the project lists, can be found in Chapter Nine. Individual jurisdictional project lists for both urban and rural jurisdictions are provided in Appendix H. Projects lists identified as “Urban” have been included within the modeling scenarios and, in some cases, include projects outside the current federally recognized urban/rural boundary. These are included to allow evaluation of projects in areas anticipated to become urban during the timeframe of this planning document.

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PORTRAYING CONGESTION/LEVEL OF SERVICE

The modeling package can portray results in a variety of measures - some lending themselves well to written discussions regarding congestion, and others that do not. One measure widely understood that lends itself well to visual portrayal of results is using projected volumes against the capacity of a roadway. This chapter will rely on Volume to Capacity (V/C) ratios for the purposes of discussion regarding potential congestion. In the simplest terms, a road segment with little or no volume would have a V/C ratio near zero, while a segment operating at its’ stated capacity would have a V/C ratio equal to one. As a general rule, V/C ratios in excess of .85 indicate congestion is likely upon that segment.

V/C ratios are shown through a range of colors, beginning with green tones near zero escalating to yellow tones up to a V/C equal to .85. Segments with a V/C in excess of .85 are considered congested and shaded in pink for emphasis. Projected PM peak-hour volumes upon each road segment are shown both by a graduated line thickness and also numerically above the roadways. Figure 7-1 below provides a model image portraying V/C ratios, with volumes reflected by thickness of line and labels upon each segment. This (2010 calibration) example shows SR 395 Blue Bridge southbound having a V/C in the .75 - 1.00 range, with the northbound V/C ratio in the .50 - .75 range. V/C ratios in excess of .85 are evident upon segments of Yelm and Benton Streets in Kennewick.

Figure 7-1, V/C Ratio & Link Volume Example

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The example provided on the previous page also shows how model results may not always mirror actual conditions. Benton Street in Kennewick is not a heavily used route, yet appears as congested within the graphic. As a reminder, a regional model is best utilized by evaluating trends upon complete corridors rather than individual network links in the model. In this case, Benton St appears as the most attractive route for the model, although Fruitland and Washington Streets are typically used by most passing through, or accessing, downtown Kennewick. It is important to implement this filter between corridors and individual links, as evaluations move into the forecast years.

Level of Service (LOS) is a widely used term in evaluation of transportation facilities. Level of Service can be measured at intersections and along roadway segments, with a scale similar to a report card where A is favorable and F is undesirable. Within the urban area, member jurisdictions have adopted LOS D as being acceptable. LOS calculations at intersections vary depending upon the type of intersection control (stop or signal), whether all approaches are controlled, and the delays associated with those controls. LOS calculations upon road segments vary as well, dependent upon a variety of factors including: roadway class, segment speed, frequency of access points, presence of pedestrians/bicyclists, turn lanes, and terrain. While neither intersection nor roadway LOS calculations are feasible to complete at the regional level, V/C ratios do provide a context that can be comparable. For instance, a V/C equal to .85 or above would be indicative of an LOS E or F.

2010 BASE-YEAR RESULTS

The base year for the model was 2010 and closely reflects the traffic volumes, as they existed during the PM peak-hour of a typical weekday that year. The base-year scenario is typically used as a control to ensure the model is calibrated to actual traffic counts – as congestion is evident to all drivers who experience conditions upon the local roadways. Areas that result in V/C ratios in excess of .85 (indicating congestion) during the base-year were:

 SR 240 eastbound between Route 10 and Stevens Drive  George Washington Way near I-182  SR 240 eastbound to I-182 westbound (near Aaron headed toward Queensgate)  Gage Blvd eastbound, east of Steptoe  Yelm Street at Intersections with SR 395 and Kennewick Ave  SR 395 southbound ramp movements between SR 397 I/C and Court St I/C  I-182 eastbound ramp to Rd 100  Road 100 between Sandifur and I-182 I/C  Road 68 northbound north of I-182 I/C

The greatest volumes travel upon the SR 240, I-182, and SR 395 corridors that stretch throughout the Tri-City area. Congestion is mostly limited to areas surrounding these state routes and their connection to local arterials. Delays at signalized intersections result in the predominance of delays upon these routes.

OTHER OPERATIONAL CONCERNS NOT IDENTIFIED BY MODEL

There invariably are locations in all models whose actual conditions are not reflected well within the model. BFCG staff and local jurisdictions have reviewed the model findings, and have identified locations where volumes are higher than portrayed by the model, or otherwise

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2011-2032 Regional Transportation Plan realized as being congested based upon other conditions. Identification of these locations is important when considering the base-year model, because locations that appear low within the calibrated model are likely to model similarly in future scenarios. The following locations have been identified as areas of congestion where the model results do not adequately portray existing conditions:

 SR 240 “Bypass” – delays at six signalized intersections on route  SR 395, Hildebrandt to Yelm – delays at seven signalized intersections along route  I-182 Interchanges at Road 100 and Road 68 - ramp delays accessing local arterials  Clearwater Blvd.- Edison St. to SR 395  SR 397 (Ainsworth Ave) - 4th Ave to 10th Ave westbound

OPERATIONAL CONCERNS FOR AM PEAK-HOUR

There are several locations in the model area that have operations problems during the morning commute, or other periods outside the PM peak-hour. With the model focus upon the PM peak-hour, and the predominant travel patterns in the area, these locations are likely to not appear within the model results. BFCG staff, with the help of WSDOT and the local jurisdictions, has compiled the following list to identify these locations.

 SR 240 westbound ramp to I-182 westbound  SR 240 “Bypass” – delays at six signalized intersection on route  Queensgate – eastbound access to I-182 eastbound  Columbia Center Blvd – northbound access to SR 240 westbound  Burden/Road 68 accessing I-182 westbound  I-182 eastbound off ramp to SR 240 northbound  At-grade railroad crossings on Leslie, Edison, Washington St./Fruitland, SR 397

ALTERNATIVE SCENARIOS

The future scenarios for 2020 and 2030 were completed using the 2020 and 2030 forecasted land use described in Chapter 6 coupled with project lists for the period between 2011-2020, and another for 2021-2030. For the “No-Build” scenarios, the road network remained as it was in the year 2010. In the Tri-City area, several capacity affecting projects have been built or are currently underway. So, while it may not be realistic to expect a road network with no improvements to the 2010 road network, these scenarios are a good representation of how conditions can deteriorate if continuing efforts aren’t made to handle needed capacity.

“Build” scenarios incorporate the projects contained within the financially constrained project listings described in Chapter Nine (lists found in Appendix H). The 2020-Build scenario incorporates all projects expected to be built between 2010 and 2020. The 2030- Build scenario reflects the addition of those projects expected to be built by 2030. Graphics are provided under each build scenario to show where projects are anticipated.

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DEFICIENCY IDENTIFICATION

2020 “No-Build” – Under this scenario, conditions at the locations listed in the base year findings have worsened, with congestion projected on numerous segments in those vicinities. As indicated earlier, many projects have occurred or are in progress to address conditions at some of these locations. Areas of congestion are primarily along major corridors or their interchanges with area highways. Some of the deficiencies new, or worsened, within the 2020 No-Build scenario are listed below:

 SR 240 westbound – Kingsgate to Stevens  George Washington Way/Lee southbound – south of Lee  I-182 westbound ramps from SR240 southbound and SR240 northbound  I-182 eastbound ramp from SR240 northbound/GWW  Queensgate southbound west of Columbia Park Trail  Columbia Park Trail westbound – east of Leslie  Gage Blvd, westbound east of Bellerive, and eastbound east of Steptoe  27th Ave eastbound – east of SR 395  SR 395 Blue Bridge southbound and Bridge approach northbound  SR 397 southbound – south of 10th Ave  I-182 eastbound ramp to Rd100 and westbound ramp from Rd 100  I-182 eastbound ramp to Rd 68  Road 68 northbound and southbound between I-182 and Burden  Burden eastbound east of Rd 68  SR 395 southbound ramp from SR 395 (@ SR 397) and southbound loop @ I-182

2020 “Build” – In this scenario, a significant number of projects have been built - some complete or underway, and others that are expected prior to 2020. In total, one hundred and fifty-four projects were listed by local jurisdictions in the 2010-2020 timeframe. Approximately one hundred of these projects affected network capacity and were built into the model. These projects consist of roadway widening, new roadways, added turn lanes, signalization or stop controls at intersections, etc. Major projects include: completion of Steptoe extension, new Southridge Area roadways, Extension of Queensgate across the Badger “saddle”, Lewis Street Overpass, extensions of Paradise and Burden roads, and completion of the Duportail Bridge. Figure 7-2 (located on following page) shows the location of assorted projects built into the 2020 Build scenario. Road projects are shown in red, with added stop controls identified as black dots and signals as green dots. As a reminder, a complete listing of projects and project details can be found in Appendix H.

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Figure 7-2, Projects for 2020 Build Scenario

Understandably, these projects reduce or eliminate many of the deficiencies listed under the 2020 No-Build scenario. However, some locations with projected congestion still remain and solutions to address these deficiencies should be identified. Listed below are some of the forecasted deficiencies for the 2020-Build scenario.

 SR 240 eastbound between Kingsgate and Stevens Dr  George Washington Way/Jadwin southbound from Lee to I-182  Duportail westbound – southbound south of Queensgate  Queensgate southbound – south of I-182 I/C  Center Parkway – south of Quinault  27th Ave and 36th Ave eastbound – east of SR 395  SR 395 Blue Bridge southbound and northbound access prior to bridge  SR 397 Southbound – south of 10th Ave  I-182 eastbound ramp to Rd 100 and westbound ramp from Rd 100  Rd 100 north of I-182 – both directions

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(2020 Build deficiency list continued from previous page)

 I-182 eastbound ramp to Rd 68  Rd 68 north of I-182 – both directions  Burden Blvd eastbound – east of Rd 68  SR 395 ramps southbound from SR 395 (@ SR 397) and southbound loop ramp at I-182

Figure 7-3 below portrays vehicular PM peak-hour flows and the corresponding V/C forecasted for the 2020-Build scenario. Locations forecasted to operate at congested conditions are shaded in pink in the graphic.

Figure 7-3, 2020-Build Volumes and V/C Ratio

2030 “No-Build” – As expected, the results of this scenario depicts the gridlock that might be expected with no capacity improvements to the road network. Most interchanges and their connection to local arterials depict some level of congestion. Numerous segments along

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2011-2032 Regional Transportation Plan arterials are projected to operate as congested. Under this scenario, the Blue Bridge is well above capacity, while the I-182 bridge is forecast near its’ capacity while carrying volumes in excess of those forecast for the SR 240 Causeway. The deficiencies under this scenario are too numerous to list, but additional detail can be found in Appendix F. As indicated in the 2020 No-Build section, it is unrealistic to assume no capacity improvements would be built over a twenty-year period. With continued attention to area needs, we anticipate being able to avoid the conditions forecast under this scenario.

2030 “Build” – As in the 2020-Build scenario, many significant projects have been built into this forecast. Jurisdictional project lists contained eighty-six projects in the 2020-2030 period, which are modeled in addition to those found in the 2020-Build scenario. Project highlights include the extension of Keene Rd to Twin Bridges, Red Mountain Interchange, Jones Rd extension, Badger sub-area arterials, Road 76 I-182 Underpass, as well as new interchanges at SR224/SR240, Road 52, Foster Wells, and Center Parkway. Figure 7-4 shows the assorted projects contained within the 2030 Build scenario using themes matching the 2020 Build graphic.

Figure 7-4, Projects for 2030 Build Scenario

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As demonstrated in the 2020 scenarios, many of the deficiencies shown under the “No-Build” scenario are reduced or eliminated with the “Build” scenario. Some of the projects within this scenario have resulted in significant shifts in forecasted traffic flows. While these shifts are largely forecasted to improve conditions in their vicinity, there do remain some locations projected to operate as congested. These locations are identified below.

 George Washington Way southbound south of Lee  SR 240 southbound ramp to I-182 eastbound and SR240 southbound from GWW  SR 240 roundabout at Steptoe/Columbia Park Trail  Gage Blvd westbound prior to Bellerive and eastbound prior to Quinault  Center Parkway south of Quinault  SR 397 south of 10th Ave  SR 395 Blue Bridge both northbound and southbound  I-182 Bridge eastbound  Road 100 north of I-182 and I-182 eastbound loop to Road 100  Road 68 northbound north of I-182  SR 395 southbound ramps from SR 395 southbound (at SR 397) and loop southbound in Argent vicinity

While the locations above are forecasted to exceed desirable levels of congestion, it is important to note that in some locations conditions are forecast to improve compared against other scenarios. These improved conditions are the result of improvements upon nearby facilities. Put another way, it is important to recognize when a location no longer shows congestion under a particular scenario and recognize why. The following observations were made between the 2030-Build and 2020-Build scenario results.

 With the extension of Keene Road to Twin Bridges and Jones Road to Kingsgate, SR 240 southbound (west of Stevens) no longer appears as congested. This could be partly a result of reduced employment upon the Hanford Site, but employment projections for the Horn Rapids “Triangle” were significant and off-set Hanford reductions to some degree. These routes appear to be attractive alternatives to the SR 240 corridor. This is evidenced upon northern portions of the SR 240 “Bypass” as well, where volumes are forecast at levels slightly lower than current conditions.  Conditions on Road 68 in I-182/Burden vicinity and upon I-182 ramps improved significantly with the addition of the Road 52 Interchange and the accompanying Road 76 Underpass. While still shown as congested, conditions are forecast to improve with these additions.

STAFF MODEL OBSERVATIONS

It is also important to identify locations where conditions are forecasted to deteriorate given the road projects planned and the projections for housing, employment, and land use. Consideration should be given to potential improvements that could help alleviate congestion at the following locations, by either providing capacity improvements or alternatives to the road network or planned development.

 SR 395 Blue Bridge and I-182 Bridges are forecast to operate very near their stated capacities and at levels of congestion in both directions on the Blue Bridge and eastbound upon I-182 Bridge. Volumes upon the I-182 Bridge are forecast to surpass

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volumes on the heavily travelled SR 240 Causeway by the year 2030.  Road 100 is forecast as congested under all scenarios, with congestion getting progressively worse in the future. Attention should be given to the I-182 Interchange and north of I-182 to ensure capacity is sufficient to handle anticipated development.  SR 397 south of 10th Ave also appears congested under most scenarios. While not forecast to carry heavy volumes, this portion of the corridor may require capacity improvements to carry forecasted loads.  George Washington Way between Lee and I-182 appear congested under all scenarios with the number of congested segments increasing in forecast years given anticipated development. Attention should be paid for effective ways to cause this corridor to operate more efficiently.  Quennsgate southbound at I-182 Interchange also appears under most scenarios. With planned improvements to Duportail Bridge and extension of Queensgate over Badger Mountain, it is important to ensure capacity is sufficient that handle these flows.

Appendix F provides an assortment of graphics to display model results for the varying scenarios described in this chapter. For additional detail about the Tri-City Travel Demand Model, please contact the Transportation Programs Office at the BFCG.

CONCLUSIONS

Solutions to many of the existing and anticipated deficiencies are included in the current Metropolitan TIP, while others are addressed in the twenty-year constrained and un-met need lists found in Appendix H. Local area staffs appear to have good understanding of the challenges they face with their existing system and anticipated growth. Projects appear appropriate and to address locations most in need.

With the network deficiencies identified throughout the model area, it is clear that significant capacity improvements will be needed to serve the needs of the growing Tri-City community. The projects included in this modeling effort are significant and high in cost; yet do not solve forecasted congestion in all areas. Officials will need to ensure revenues are applied to those projects that reap the greatest benefit while being aware of the impacts of anticipated development.

Attention should be paid to development of alternative modes and options, to help alleviate congestion on area roadways, with continued emphasis upon public transit use and carpool/vanpool operations. This is of particular importance with regard to the work commute, given the heavy percentage of employees located north and northwest of the urban area. Development in appropriate areas should ensure bicyclists and pedestrians have adequate facilities available, so that travel via automobile may not be required on a daily basis. Area commuters struggle with barriers in our commute, both man-made and natural, that further restrict travel. Finding solutions to these barriers will be key, as officials work to provide a system that allows freedom of movement across the area.

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OTHER LONG RANGE PLANNING CONSIDERATIONS

Columbia River Crossing Study/Tri-Cities

Completed during 2010, the Columbia River Crossing Study was initiated due to numerous discussions and previous work accomplished in the Tri-City area, focusing on congestion at the Pioneer Memorial (Blue) Bridge. The Benton-Franklin Council of Governments (BFCG) initiated the study and partnered with the Cities of Pasco, Kennewick, and Richland, along with Benton and Franklin Counties and the Ports of Benton, Pasco, Kennewick and Walla Walla.

The scope of the study was defined to review up to ten crossing locations, to consider fatal flaws in any of the alternatives, and to winnow those ten alternatives ultimately to three locations to move forward into the formal environmental processes. Figure 7-5 shows the ten locations evaluated during this study.

Figure 7-5, Ten CRCS Evaluation Locations

A Steering Committee was formed of officials from study member jurisdictions. Members screened options based upon congestion, system connectivity, economic benefit, environmental concerns, project costs, and community support. Based upon information provided by the consultant group, the Steering Committee agreed that the alternatives below (and shown in Figure 7-6 on next page) should be carried forwarded into more detailed engineering and environmental analysis.  Alternative 1 – A new span located north of the Hanford 300 Area connecting to Columbia River Road and W Sagemoor Road on the east  Alternative 6 – A new span from Edison Street in Kennewick to Road 68 in Pasco  Alternative 7 – An additional bridge span parallel to existing US 395 “Blue Bridge”

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Figure 7-6, CRCS Alternatives for Future Analysis

US 395 Corridor Study

The US 395 corridor through the Tri-Cities has many limitations, including substandard interchanges from I-182 to SR 240, and several signalized at-grade intersections through the City of Kennewick. The highway functions more as a city arterial than a major north-south U.S. route between the Canadian and Mexican borders.

WSDOT is currently working upon a study to document conditions throughout this corridor and suggest solutions to the many challenges upon the corridor. At this time, the study is not yet complete but recognition of the current study was desired within this plan.

A 1995 consultant study jointly managed by WSDOT and ODOT considered alternative routings for US 395 from north of Pasco to I-84 in Oregon. There was strong local opposition in Oregon to relocating the highway to not pass through the cities of Hermiston and Stanfield. The study, thus, recommended retaining the existing US 395 routing, in full recognition of the on- going congestion problems in the Tri-Cities.

At such time as US 395 congestion and resultant accidents in Pasco and Kennewick approach intolerability, major capacity and safety improvements will have to be made. Due to the extent of abutting developments, such improvements will have extreme costs. Recent funding efforts have targeted small sections of this corridor, focusing on a few intersections and an interchange improvement. Anticipated conditions along this corridor warrant a more detailed study of alternative routings or increased capacity through or around the area.

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CHAPTER EIGHT – RURAL JURISDICTIONS STREET AND ROAD SYSTEM EVALUATION

INTRODUCTION

This chapter presents a brief review of the status of street and road systems for each jurisdiction in the rural portion of the RTPO.

REGIONAL LEVEL OF SERVICE STANDARDS

The Benton-Franklin Council of Governments set uniform urban and rural area Level of Service (LOS) standards for the three-county region. For urban areas over 5,000 in population the uniform LOS is “D”. For rural areas and small cities under 5,000 in population the uniform LOS is “C”. The regional cities and counties have adopted the regional LOS “C”.

EVALUATION OF RURAL JURISDICTIONS

Rural Benton County In large measure, road access for rural and agricultural areas in rural Benton County is good and improving. However, the road system may be considered to provide less than convenient access to some of the outlying rural areas.

Congestion challenges are absent on county roads serving rural or agricultural areas; existing LOS is "B" or higher. Generally, principle road concerns in rural areas are "all weather" access for agricultural product transport, and more direct farm-to-market routes for agricultural products. The need for road improvements is primarily based on pavement condition; substandard widths; the need for all-weather surfacing on roadways subject to seasonal closures or weight restrictions; the need for hard surfacing of gravel roads; and safety.

Benton City All of Benton City’s functionally classified streets are predicted to operate at LOS A or B in the Year 2030, with one exception. State Route (SR) 225, which is contiguous with components of the Benton City street system from the Yakima River north to SR 240, is forecast to operate at LOS D by 2020. This is a situation which Benton City and WSDOT should monitor over time.

Prosser Most segments of the Prosser street system currently operate at LOS B or better. Projected volumes based on traffic count data suggest the downtown area south of the railroad tracks is the area of town most prone to future congestion. Because increased downtown business activity would lead to increased congestion, Prosser’s 2011 Comprehensive Plan reduces the downtown LOS threshold to “D” in order to accommodate the City’s vision for a more robust downtown. The remainder of Prosser’s street system has an LOS threshold of “C”.

Higher traffic volumes are also projected north of the Yakima River on Wine Country Road. Recent improvements on Wine Country Road were designed to accommodate these higher traffic volumes. However, continued intensification of growth accessing the intersections at

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2011-2032 Regional Transportation Plan the I-82 interchange and Merlot Drive in the north part of the city will require a major street improvement project at some point during the planning period.

Rural Franklin County Most of Franklin County’s functionally classified rural roads currently operate at LOS A or B. A few segments operate at LOS C, the regionally adopted standard. In 20 years, segments of Road 68 North and Taylor Flats Road may degrade to LOS D and merit future monitoring. These segments constitute a very small percentage of the classified rural road system. As such, traffic congestion is generally not a problem in rural Franklin County.

The need for road improvements therefore, is primarily based on pavement conditions; substandard widths; the need for all-weather surfacing on roadways subject to seasonal closures or weight restrictions; the need for hard surfacing on gravel roads; replacement of obsolete bridges; and safety.

Connell Calculations based on traffic counts performed prior to completion of the Coyote Ridge Correctional Facility expansion show all of Connell’s functionally classified streets operating at Level of Service (LOS) “A” or “B” through the Year 2030 except for portions of Columbia Avenue north of Elm Street where higher traffic volumes may occur. Traffic flow, operating speeds, and maneuverability on most of the street system is expected to be at acceptable levels through the planning period. The need to widen Columbia Avenue beyond the current three lanes would be near the end of the 20-year horizon of the Plan.

The population impact of the Coyote Ridge expansion has been estimated at 600 persons, or a 20 percent increase. Post-expansion employment at the facility is estimated to be around 700 persons total rotating through three shifts. The effects of the expansion population growth and employment-related trips need to be more closely examined.

Coyote Ridge is located on the northeast edge of Connell on North Columbia Avenue and adjacent to US 395. Many of the employees utilize the highway rather than the Connell street system for their work trip. The intersection of North Columbia Avenue and US 395 is at-grade and experiences heavy usage during shift changes. In 2004, Connell, Franklin County, WSDOT and the BFCG partnered in a study to define a footprint for a potential interchange in this area.

Kahlotus All of Kahlotus’ functionally classified streets, including State Routes 21, 260, and 263, are projected to operate at LOS A in the Year 2030. Anticipated need is likely to be in the form of street maintenance and the necessity for wider streets with curbs, gutters, and sidewalks.

Mesa All of Mesa’s functionally classified streets are projected to still operate at LOS A during the life of the Plan. Therefore, projects are generally triggered by pavement condition and the need for wider streets with curbs, gutters, and sidewalks.

Rural Walla Walla County Overall, traffic congestion is not a problem on Walla Walla County’s rural roads. All of the County’s roads currently operate at LOS A or B, and population growth in the rural County has

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2011-2032 Regional Transportation Plan been slow – less than one percent/year between 2000 and 2010. None of the County- controlled roadways are projected to exceed their level of service standard by the year 2030.

The need for road improvements on rural County roads is primarily based on pavement condition; substandard widths; the need for all-weather surfacing of roadways subject to seasonal closures or weight restrictions; the need for hard surfacing of gravel roads; replacement of obsolete bridges; and safety.

Prescott All of Prescott’s streets, including SR 124, are predicted to operate at LOS A or B throughout the 20-year planning period. Therefore, projects are generally triggered by pavement condition and the need for wider streets with curbs and sidewalks. The city’s ability to finance such improvements relies upon securing state and/or federal funding.

Waitsburg The City of Waitsburg is unique in that the two principal arterials in town are actually State highways: State Route 12 (Coppei Avenue) and State Route 124 (Preston Avenue), which are maintained by the State Department of Transportation. Calculations indicate a segment of SR 12, which passes through Waitsburg from the east city limits to the junction with SR 124, is projected to operate at LOS C by 2030. The rest of the state system is projected to operate at LOS A or B, as are all of Waitsburg’s remaining streets.

Routine maintenance and preservation activities will be necessary on the state system. This would consist of asphalt overlays with safety restoration.

THE WALLA WALLA/COLLEGE PLACE TRAFFIC CIRCULATION STUDY

In May 2004, the BFCG completed a traffic circulation study for the Walla Walla/College Place urban area. Both jurisdictions cited the Study in their latest comprehensive plans while discussing their street systems. Due to the passage of time, and the construction of significant regional transportation improvements, the data and conclusions in the Study are no longer valid.

Two projects completed in 2010: the Myra Road Extension from Poplar Street to US 12; and the Frenchtown Vicinity to Walla Walla project which relocated US 12 and widened it to four lanes have altered travel patterns in the urban area.

EVALUATION OF THE WALLA WALLA URBAN AREA

Urban Walla Walla County Capacity deficiencies may develop on urban area roads currently under county jurisdiction over the twenty-year life of the Plan. Growth in Walla Walla and College Place, and the expansion of city limits could encompass those areas within that time frame.

College Place Most federally-classified streets in College Place currently operate at acceptable levels of service. Several deficiencies were identified in the 2004 Traffic Circulation Study; however, The above noted changes to the regional transportation network have occurred since then, altering conditions defined in that report.

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Improvements to the local transportation network are also underway. The City of College Place is also reconstructing and improving roughly a mile of Whitman Drive from Larch to Academy Drive with completion anticipated by November 2011. Additionally, the City is planning the reconstruction of Rose Avenue, a primary east-west arterial from Myra Road through College Avenue, a primary north-south arterial.

Walla Walla Streets in Walla Walla generally operate at acceptable levels of service. As noted with College Place, deficiencies were identified in the 2004 Walla Walla/College Place Traffic Circulation Study. Regional changes to the urban area traffic system since the Study are noted above.

Changes to the City’s transportation network have occurred since that time. A project to reconstruct 13th Avenue from Abadie Street to Cherry Street to minor arterial standard is scheduled for construction. Additionally, the Myra Road – SR 125 to Garrison Creek project, which includes a grade separated intersection, is being studied.

WSDOT - RTPO Analysis of state routes in the rural RTPO region has determined that very few potential capacity challenges exist over the 20-year life of the plan. In 2006, WSDOT South Central Region Headquarters generated a spreadsheet that forecasts LOS for every segment of the state highway system in RTPO. Forecast data in the table, which includes the years 2015 and 2025, shows all segments of the Non-HSS state system operating at LOS C or above.

SR 125 through Walla Walla functions as a city street with numerous intersections, traffic signals and commercial activities. The inherent congestion and delay are not conducive to through travel. There have been discussions between urban area jurisdictions and WSDOT to transfer jurisdictional responsibilities for the existing SR 125 and the new Myra Road, which would become the new SR 125.

SR 225 extends from Interstate 82 through Benton City to SR 240 at Horn Rapids, serving as Benton City’s main street. Hanford commuters dominate peak volumes on this two-lane roadway and the route should be monitored for capacity problems.

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CHAPTER NINE – FINANCES

Chapter Nine presents the financial component of the Regional Transportation Plan. The purpose of the financial analysis is to demonstrate what funding may be reasonably available during the planning horizon of the Plan. This analysis should in no way be construed to be an actual forecast of individual programs or projects, but rather an analysis of funds that could be reasonably available for transportation investments during the planning horizon of the Plan.

This chapter shows two components of street and road transportation finance in the MPO and the rural RTPO.

The first is a summary of revenue sources and expenditures for the decade of 1999-2008 for city and county road systems. The data is compiled from the City Street and County Road Report form, a survey of transportation related revenues and costs submitted annually to WSDOT by each Washington city and county.

The second, is a look at projected revenues and expenditures for city and county streets and roads, state highways, and transit in the MPO for 22 years from 2011-2032, and the rural RTPO for the 20-year period of 2011-2030.

The financial analysis presents forecast revenue, non-construction transportation expenditures, estimated project construction costs and potential remaining funds for the MPO and the rural RTPO. The tables are based on completion of projects identified by each jurisdiction within the horizon of the Plan.

BFCG staff developed projections for local, state, and federal revenue based on historical data trends and assumptions developed through the Plan development process with the MPO/RTPO Technical Advisory Committee (TAC). TAC members include representatives from local agency planning and public works staffs, WSDOT, and transit agencies.

The lists of projects identified by MPO and rural RTPO jurisdictions are shown in Appendix H. Additional projects identified in case additional revenue becomes available are also listed in Appendix H.

The RTP projects are consistent with each jurisdiction/agency Transportation Improvement Program (TIP) and comprehensive plan.

This chapter also contains information concerning projected revenues and costs for Ben Franklin Transit, Valley Transit and rural WSDOT costs over the life of the Plan.

HISTORICAL REVENUES AND EXPENDITURES: 1999-2008

Figure 9-1 and Table 9-1 (pages 9-3 and 9-5) show the transportation revenues received by cities and counties in the RTPO between 1999 and 2008 by category, in addition to the percent each category comprised of total revenue. The data is presented for three different geographies – the MPO (Tri-Cities metropolitan area), the rural RTPO (the remainder of the RTPO) and the combined MPO/RTPO (the entire three-county region).

Benton-Franklin Council of Governments Page 9-1 2011-2032 Regional Transportation Plan Using the same three areas, Figure 9-2 and Table 9-2 (pages 9-4 and 9-5) show the value of non-construction transportation expenditures by cities and counties in the RTPO between 1999 and 2008, in addition to showing the percent each category comprised of total expenditure.

FINANCIAL ANALYSIS

Tables 9-3 and 9-7 in this section provide a financial analysis addressing forecasted revenue, non-construction costs, and transportation project costs for street and road systems in the MPO and the rural RTPO.

YEAR OF EXPENDITURE CALCULATIONS

CFR Section 23.450.322 states “Starting December 11, 2007, revenue and cost estimates that support the metropolitan transportation plan must use an inflation rate(s) to reflect “year of expenditure dollars,” based on reasonable financial principles and information, developed cooperatively by the MPO, State(s), and public transportation operator(s).” Year of expenditure calculations (YOE) are mandatory only for MPO jurisdictions. YOE inflation calculations are not developed for jurisdictions outside the MPO.

To calculate YOE revenues, the 1999-2008 revenue data from each MPO jurisdiction’s Street and Road report was reviewed to develop a rate of inflation. The Highway Construction Cost Index and the Highway Construction Cost Index – Maintenance, national indices used by WSDOT to forecast project and M&O costs, were used to determine a rate of inflation for construction and maintenance and operations costs.

FINANCIAL CONSTRAINT

Based on regulatory requirements, the MTP is required to be financially constrained to reflect what realistically may be done with available revenues during the 22-year planning horizon. This requirement mandates that the improvements included in the plan, and the maintenance and preservation of the existing transportation system, must be affordable within already available and projected sources of revenue.

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Figure 9-1: 1999-2008 Transportation Revenue by Category in the Benton-Franklin-Walla Walla RTPO

1999 - 2008 MPO and Rural RTPO Transportation Related Revenue

35%

30%

25%

20% Rural RTPO ($373,649,175 total) 15%

10% MPO ($307,757,726 total) Percentage of Total Expenditures 5%

0% Property Taxes Special Assess. Gen. Fund Approp. Other Local Receipts State Fuel Tax Distrib. Other State Funds Federal Revenues Bond Proceeds

Source: 1999-2008 WSDOT City Street and County Road Reports

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Figure 9-2: 1999-2008 Non-Construction Transportation Expenditures by Category in the Benton-Franklin-Walla Walla RTPO

1999 - 2008 MPO and Rural RTPO Non - Construction Transportation Expenditures

60%

50%

40%

30% Rural RTPO ($208,974,472 total) 20% MPO ($134,734,649 total) 10% Percentage of Total Expenditures

0% Preservation Maintenance Admin. Plant Maint & Constr. Debt Service Other Traffic Policing

Source: 1999-2008 WSDOT City Street and County Road Reports

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Table 9-1: 1999-2008 Transportation Revenue by Category in the Benton-Franklin-Walla Walla RTPO 1999-2008 MPO and RURAL RTPO TRANSPORTATION RELATED REVENUE ($)

Property Special Gen. Fund Local Road Other Local State Fuel Other State Federal Bond Ferry Total Taxes Assess. Approp. User Taxes Receipts Tax Distrib. Funds Revenues Proceeds Tolls Receipts MPO 18,690,521 18,570,937 66,104,160 0 95,794,771 35,136,064 47,999,042 31,439,661 8,331,633 0 322,066,790 % of Total 6% 6% 21% 0% 30% 11% 15% 10% 3% 0% Rural RTPO 98,542,757 2,417,505 73,034,375 0 42,927,580 100,999,746 53,874,598 50,473,137 3,709,319 0 425,979,016 % of Total 23% 1% 17% 0% 10% 24% 13% 12% 1% 0% Source: 1999-2008 WSDOT City Street and County Road Reports

Table 9-2: 1999-2008 Non-Construction Transportation Expenditures by Category in the Benton-Franklin-Walla Walla RTPO 1999-2008 MPO AND RURAL RTPO NON-CONSTRUCTION TRANSPORTATION EXPENDITURES($) Plant Maint. Debt Traffic Total Preservation Maintenance Admin & Constr. Service Other Policing Expenditures MPO 494,113 52,359,751 13,750,819 468,806 30,984,128 8,685,442 38,815,541 145,558,601 % of Total 0.3% 36% 9% 0.3% 21% 6% 27% Rural RTPO 7,803,960 115,741,261 35,807,557 3,422,992 7,168,417 17,905,266 56,195,696 244,045,148 % of Total 3% 47% 15% 1% 3% 7% 23% Source: 1999-2008 WSDOT City Street and County Road Reports

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MPO 22-YEAR FINANCIAL ANALYSIS: 2011-2032

MPO ROAD SYSTEM 22-YEAR FINANCIAL ANALYSIS: 2011-2032

Table 9-3 provides an analysis of revenues and costs over the next 22 years for state highways, streets, and roads in the MPO planning area. WSDOT and the metropolitan area jurisdictions have estimated revenue of $1.06 billion to maintain and provide needed improvements to their street systems over the next 22 years. Of this total, $474 million (45%) will be needed to maintain and operate the system, and $589 million (55%) will be available for improvements. At the end of the 22-year planning horizon, the MPO will have an estimated $30 million surplus.

Table 9-3: 2011-2032 MPO Road System Financial Analysis TOTAL MPO ROAD SYSTEM 22 YEAR FINANCIAL ANALYSIS ($) FORECAST PROJECT YEAR REVENUE FORECAST M&O COSTS PROJECT REVENUE COSTS ENDING BALANCE 2011-2020 478,697,110 216,716,847 261,980,262 261,528,746 451,516 2021-2032 583,830,856 257,276,708 326,554,148 296,334,075 30,220,073 Total 1,062,527,965 473,993,555 588,534,411 557,862,821 30,671,590 Source: WSDOT, MPO Jurisdictions

BEN FRANKLIN TRANSIT

In developing this 2011-2032 financial analysis, Ben Franklin Transit assumed an annual 3% increase in sales tax, fares. The agency assumed a 2.75% annual increase in expenditures for the first decade and a 3% increase in expenditures for the final 12-year period. Revenue received from grants for equipment purchases was kept at a constant value. The 2011-2032 Financial Analysis for Ben Franklin Transit is shown in Table 9-4 below.

Table 9-4: Ben Franklin Transit 2011-2032 Financial Analysis BEN FRANKLIN TRANSIT 22 YEAR FINANCIAL ANALYSIS ($)

OPERATIONS OPERATIONS CAPITAL CAPITAL REMAINING YEAR INCOME EXPENSES INCOME EXPENSES ESTIMATE 2011-2020 323,126,476 322,187,121 47,862,000 47,862,000 939,356 2021-2032 553,272,437 546,810,441 61,000,000 61,000,000 6,461,996 TOTAL 876,398,913 868,997,562 108,862,000 108,862,000 7,401,351 Source: Ben Franklin Transit

CONCLUSION – TOTAL MPO 22 YEAR FINANCIAL ANALYSIS

The financial analysis developed for this plan indicates financial resources forecast for the 2011-2032 MTP are sufficient to support the planned expenditures as shown in Table 9-5 below.

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Table 9-5: Total MPO 2011-2032 Financial Analysis TOTAL MPO 22 YEAR FINANCIAL ANALYSIS ($) YEARS 2011-2020 2021-2032 TOTAL REVENUES 849,685,586 1,198,103,292 2,047,788,878 EXPENDITURES 848,294,714 1,161,421,223 2,009,715,937 TOTAL 1,390,872 36,682,069 38,072,941 Source: Ben Franklin Transit, WSDOT and MPO Jurisdictions

RURAL RTPO 20-YEAR FINANCIAL ANALYSIS: 2011-2030

RURAL RTPO ROAD SYSTEM 20-YEAR FINANCIAL ANALYSIS: 2011-2030

Tables 9-6 below provides a 20-year financial analysis addressing forecasted revenue, non- construction costs, and transportation project costs for street and road systems the rural RTPO. Table 9-6 provides an analysis of revenues and costs over the next 20 years for state highways, streets, and roads in the rural RTPO planning area. WSDOT and the metropolitan area jurisdictions have estimated revenue of $1.07 billion to maintain and provide needed improvements to their street systems over the next 20 years. Of this total, $476 million (45%) will be needed to maintain and operate the system, and $589 million (55%) will be available for improvements. At the end of the 20-year planning horizon, the rural RTPO planning area will have a remaining estimate of -$29 million.

Table 9-6: Rural RTPO Road System 2011-2030 Financial Analysis TOTAL RTPO ROAD SYSTEM 20 YEAR FINANCIAL ANALYSIS ($)

FORECAST FORECAST M&O PROJECT PROJECT REMAINING YEAR REVENUE COSTS REVENUE COSTS ESTIMATE 2011-2020 437,149,175 232,923,613 204,225,562 236,521,685 -32,296,123 2021-2030 628,649,175 243,923,613 384,725,562 381,468,000 3,257,562 Total 1,065,798,351 476,847,226 588,951,125 617,989,685 -29,038,560 Source: WSDOT South Central Region Planning Office, RTPO Jurisdictions

VALLEY TRANSIT

In developing this 2011-2030 financial analysis, Valley Transit assumed an annual 3.0% increase in sales tax, fares and all operating expenditures. The cost of capital equipment purchases assumed an annual 4.6% increase. The local match requirement for capital equipment grants is assumed to remain at 20%. The 2011-2030 Financial Analysis for Valley Transit is shown in Table 9-7 below.

Table 9-7: Valley Transit 2011-2030 Financial Analysis VALLEY TRANSIT 20 YEAR FINANCIAL ANALYSIS ($) OPERATIONS OPERATIONS CAPITAL CAPITAL REMAINING YEAR INCOME EXPENSES INCOME EXPENSES ESTIMATE 2011-2020 44,288,505 41,451,087 11,178,912 16,007,791 -1,991,461 2021-2030 59,574,018 56,579,334 14,669,498 20,546,450 -2,882,268 TOTAL 103,862,523 98,030,421 25,848,410 36,554,241 -4,873,729 Source: Valley Transit

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JURISDICTIONS/AGENCIES NOT INCLUDED IN FINANCIAL ANALYSIS

The Port Authorities in the RTPO (Port of Benton, Port of Kennewick, Port of Pasco, and the Port of Walla Walla) were not included in the financial analysis for the RTPO or MPO. The financial resources (federal and state) the port authorities are projected to receive for road improvements are small compared to what other jurisdictions/agencies receive, and are usually transferred to other jurisdictions for access improvements to port facilities.

UNMET NEED

Multiple jurisdictions in the RTPO have projects designated as “Unmet Need”, with no funding available. RTPO and MPO members have indicated the funding shortfalls, excluding the planning projects, will be reduced to a manageable level and/or eliminated as project priorities and plans are defined and future transportation improvement plans are developed. These projects are listed in Appendix H.

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CHAPTER TEN – PLAN IMPLEMENTATION

Implementing the 2011-2032 Regional Transportation Plan involves putting the vision of the plan to work – initiating transportation demand programs, and building transportation improvements. An integral part of the RTP is monitoring the performance of the regional transportation system over time, and comparing the results with the established regional growth and transportation strategies. This information is necessary to determine the success of plan implementation and the effects of the desired improvements on the performance of the regional transportation system.

The regional transportation strategies in this chapter identify and address alternative transportation modes within the region and recommend policies to enhance each transportation mode, enhance inter-modal connections, and promote transportation demand management where appropriate. These strategies are intended to guide development of the RTP and any periodic updates.

The performance measures described in this chapter will be used to monitor change involving the regional transportation system. Performance measures will be coordinated and measured on a consistent basis throughout the RTPO.

REGIONAL GROWTH STRATEGY

The Office of Financial Management (OFM) estimates the current population of the RTPO to be 317,200. This number lies between the OFM medium and high population projections discussed in Chapter Five. Based on those projections it is reasonable to estimate a population of roughly 400,000 for the RTPO in 2030.

Land use and growth planning indicate there is a more than adequate supply of land available to absorb the predicted regional growth, though adopted Urban Growth Areas (UGAs) for some jurisdictions may have to be expanded. Successfully distributing growth while preserving valuable agricultural resource lands is a goal of each of the three counties, all of which have opted into the Growth Management Act (GMA).

Urban Development Urban development will first be directed toward those areas already supplied with some level of government services or infrastructure. Urban infill will be encouraged in order to utilize existing infrastructure expenditures.

Outside the corporate city limits, within designated UGAs, the focus will be on phased development. Initially, growth should occur in that portion of the UGA already characterized by urban services and facilities such as paved roads, and public water and/or sewer. Secondarily, growth should occur in those areas of the UGA where services and facilities do not exist but are planned.

The transition of land use from rural to urban, management of development applications and provision of services within the UGA are being accomplished through cooperative planning between the counties, local jurisdictions, and responsible agencies. These efforts coordinate policy in areas such as land use and subdivision planning, common development standards, service delivery, and infrastructure financing. A process is also in place by which jurisdictions

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2011-2032 Regional Transportation Plan may comment on comprehensive plan amendments, zone changes, and development applications within the UGA.

Rural Development Two important considerations influencing rural development decisions are the availability of services and the carrying capacity of the land. These two factors are closely related. Inadequate services pose public health and safety risks such as septic system failures, well contamination, and traffic congestion. Impacts of increased housing density include aquifer depletion, surface water runoff, and groundwater contamination.

Rural areas serve as buffers between urban and resources lands, and provide land for future expansion. Development of rural lands will need to be accommodated in a manner that does not diminish open space and privacy values associated with rural lifestyles.

The issues of availability of services, housing density, carrying capacity, and preservation of rural/agrarian lifestyles, underscore the challenges of rural development. Clustered development and focused public investment are valuable tools in the management of that growth.

Development of Resource Lands Encroaching residential development could threaten the agriculture base that is vital to the region’s current and future economy. Deterring incompatible land uses on or near resource lands is critical for the continued economic well being of the region.

The focus of growth management is to maintain and enhance existing productive resource lands and discourage incompatible uses, primarily through establishment of minimum parcel sizes.

REGIONAL TRANSPORTATION STRATEGIES

Regional transportation strategies are used to implement the regional growth strategy discussed above. The strategies identify and address alternative transportation modes within the region, enhance individual transportation modes as well as inter-modal connections and, as appropriate, promote transportation demand management.

Countywide planning policies and policies from local comprehensive plans that are regional in scope and regionally consistent provide the basis for the regional transportation strategies.

 Meet the transportation infrastructure needs of the region’s major sources of economic growth and vitality.

Projects that meet this condition are improvements that directly facilitate the movement of goods or people in a manner that provides a net benefit to the region as a whole. This would include the improvement of the recreational roadway system to attract visitors from outside the region; the improvement of the portions of the haul road system and access to water ports, railheads, and airports. Development of these components of the roadway system facilitates movement that generates income for the region’s principal industries and contributes to regional development.

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 Support the coordination of land use and transportation decisions.

There are portions of the region which are undergoing significant development with regard to land use. Chapters Six and Seven have described these in some detail. Projects that support or accommodate land use development in these areas meet this condition.

 Improve multi-jurisdictional coordination to avoid transportation system deficiencies.

This applies to situations where a project requires involvement of either more than one level of government, adjacent governmental jurisdictions, or agreements between public and private sector entities. In the case of all these partnerships, the administrative oversight, financing, and other aspects of project development can be shared and make a productive outcome more likely.

 Promote efficient multimodal transportation systems and connections.

Projects should evaluate and address the needs of all forms of transportation, including public transit, pedestrians and bicyclists. Multimodal connections should be readily accessible, convenient and provide smooth transitions between modes.

 Promote effective intermodal transportation systems and connections.

Opportunities for intermodal facilities are few. Existing facilities should be maintained and the development of new intermodal facilities encouraged. Railex and the Port of Pasco Big Pasco facility are examples.

 Ensure sufficient rail and road access to the Snake and Columbia River port facilities and ensure sufficient infrastructure (i.e. barge slips, docks, and storage facilities) at those ports.

Barge transportation on the Snake/Columbia River system is vital to the economy of the region, the state, and the entire northwest. Without that competitive option, the costs of transporting by rail or truck would surely increase. Furthermore, massive rail and road capacity improvements would be needed to move those commodities now shipped by barge.

 Actively support the US Army Corps of Engineers (COE) in their efforts to maintain adequate depth in the lower Columbia River ship channel Also, support the COE’s ongoing efforts to dredge and maintain sufficient clearance for barge traffic on the Snake River from the Lewiston/Clarkston area to the Columbia River near the Tri-Cities.

As stated above, shipment of freight by barge is a significant component of total freight traffic for goods traveling from the RTPO to the coast. International shipping is vital to Washington’s continued economic growth. Continued viability of the rivers themselves is critical to successful maintenance of this freight mode.

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 Promote innovative financing strategies.

Decreased transportation revenues make it imperative that innovative financing strategies be utilized to get the most possible benefit from available funds. Innovative financing strategies can involve partnering between jurisdictions and may also include the private sector.

PERFORMANCE MEASUREMENT

Monitoring the performance of the regional transportation system involves the measurement of changes in specific factors over time. “Transportation Trends and Key Facts” released by BFCG in 2010 summarizes data on multiple aspects of both the metropolitan and regional transportation systems over time. The report presents data in the areas of Growing Travel Demand, Transportation System and Transportation Impacts. The Transportation Trends report is available on the BFCG website at: http://www.bfcog.us/transportation.html.

Tracking changes region-wide provides information to local and regional policy makers and educates interested citizens. Feedback from performance monitoring can lead to program and goal modification, more intensive evaluation of specific factors, changes in the types of data collected, or improvements to the transportation system.

Performance Measures Two potential highway system performance measures are reviewed below. Additional aspects of the regional transportation system topics or modes that may be tracked are also discussed. System performance measures will be evaluated and incorporated into subsequent RTP updates. The performance monitoring of the RTP will be completed and reported as a part of the biennial RTP review.

Highway Performance Measures These data are generally used to assess street capacity deficiencies. No single measure can provide a complete assessment of the transportation system. Each analytical technique measures a different performance level.

A street segment or intersection that is performing poorly using one measure may function adequately according to other criteria. Each measure indicates a different range of responses that could address trouble areas identified in the analysis.

Currently, data available for tracking road system performance includes:

Traffic Volumes Traffic volumes are primarily useful for ensuring that roadway improvements are adequate to address the demands of peak travel periods. Traffic volumes are one of many data inputs of the regional transportation model and are used to project the region’s travel behavior and the efficiency of roadway segments.

Vehicle Miles Traveled The number of vehicle miles traveled (VMT) in a region reveals a relationship between land use and the transportation system. Average VMT per vehicle trip is often used to calculate generally how far motorists commute between home and work.

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The 2010 Tri-Cities traffic model provides the ability to extract vehicle miles traveled on critical segments of the metropolitan street and highway system. Revision of the metropolitan area model every five years for Regional Transportation Plan updates affords the opportunity to track changes in vehicle miles traveled in the model area.

Level-of-Service Typically, performance standards that measure traffic congestion are presented in the context of level-of-service (LOS) measures. These are measures of observed traffic volume compared with capacity along roadway segments and a measure of delay at intersections and ramps. Data requirements for calculating the LOS of arterials include existing street capacity, traffic volumes, and travel time. Jurisdictions typically adopt LOS C in rural areas and LOS D in urban areas.

Additional Transportation System Measurements Streets and highways are a significant component of the transportation system in the RTPO, but additional elements could be measured. Some of these are listed below.

Seasonal Weight Restrictions Seasonal weight restrictions on rural county freight and goods routes are discussed in Chapter Two as a regional transportation issue or concern. During spring freeze/thaw cycles those freight and goods routes not adequately surfaced can suffer damage if weight restrictions are not imposed. Tracking progress toward all-weather surfacing those routes is an easily attainable performance measure.

Public Transportation The data required to measure the effectiveness of public transportation includes ridership trends and the provision of service to transit dependent citizens. These data requirements should be equal to or exceed baseline calculations. Ben Franklin Transit and Valley Transit maintain records on ridership trends and provision of services.

Freight Transportation Performance Measures Freight transportation is very important to the economic vitality of this agricultural region. An effective freight system requires swift and economical transport. The data required to measure the needs and effectiveness of the freight transportation system includes an estimate of the amount of freight transported and a determination of deficiencies to include travel routes, frequency of transport, time of transports, and other constraints.

Freight tonnage was collected for the Freight and Goods Transportation System (FGTS), which categorized roadways based on the level of annual freight tonnage in order to identify road segments, which play a significant role in movement of goods in the state. Other data will need to be collected to establish baseline records.

Air Transportation Performance Measures The RTP encourages air transportation of people and freight by minimizing the impact of surrounding development on airport operations. Data required to measure air transportation include the amount of freight and passengers transported and a determination of deficiencies to include provision of service demand and frequency. A performance standard for these data could be to not decrease below the baseline level. Both the Port of Pasco (Tri-Cities Airport) and the Port of Walla Walla (Walla Walla Regional Airport) collect annual freight and passenger statistics.

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Rail Transportation Performance Measures Rail services in the RTPO region are very important to the transport of freight and passengers. Data requirements for measuring the effectiveness of the rail system include the amount of freight transported and the number of passengers served. Data on rail deficiencies should also include the number of crossings, the amount of line trackage in compliance with standards, and frequency of service. The performance standards for the data required are its baseline measurements. Baseline data will need to be gathered.

Non-Motorized Transportation Performance Measures The non-motorized transportation system component includes commuter and recreational bike routes and pedestrian sidewalks and pathways. Emphasis is given in our cities and towns to providing sidewalks along all arterials and school routes and to connecting parks and residential areas with bicycle and pedestrian paths whenever possible.

The data required to measure the non-motorized system may include pedestrian and bicycle usage of the existing trail system, non-motorized travel patterns, the existing connections between paths and parks or residential areas, sidewalk locations, and the number of improvements made to the existing pedestrian system to meet ADA requirements. The performance standards for these facilities could be to exceed baseline levels. The baseline measurement for sidewalks includes locating them on all arterials and school routes. Baseline data is not available and would have to be gathered for this system component.

Multi-Modal Transportation System Increased integration of transportation modes in the regional transportation system can result in more efficient use of existing infrastructure and programs. Multi-modal performance measures could be determined by household travel surveys indicating the percentage of trips taken by alternative transportation modes to the single-occupant vehicle.

Intermodal Transportation System The number of inter-modal connections in the region, and the mode split between the transportation of freight by truck, rail, barge, or air. The performance standard for the number of inter-modal connections and modal split between truck, barge, and rail in the region could be to remain at or exceed the baseline calculation.

Coordination The effectiveness of coordination efforts between RTPO members, system stakeholders, and other interest groups and citizens is difficult to evaluate. However, qualitative data can be gathered by surveying persons to assess opinions and evaluate coordination related accomplishments. The performance standard could be an overall adequacy rating of regional transportation planning coordination. There is currently no baseline measurement of this rating.

OBJECTIVES-DRIVEN PERFORMANCE-BASED PLANNING

Two separate influences present at the Federal level are encouraging the integration of objectives-driven performance-based planning at the MPO level.

There is a strong possibility the BFCG will become a Transportation Management Area (TMA) following the release of 2010 census data. A requirement of TMA designation is development of a Congestion Management Process (CMP). An element of the CMP is “Definition of

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2011-2032 Regional Transportation Plan congestion management objectives and appropriate performance measures to assess the extent of congestion.”

Additionally, FHWA is promoting the integration of objectives-driven performance-based planning into the metropolitan planning process. This focuses on management and operations considerations within the context of the ongoing regional transportation planning and investment process. The process, as developed by FHWA, dovetails into the CMP, so implementing the former initiates the latter.

Example objectives from the 2008 Regional Transportation Plan developed by the Regional Transportation Commission of Washoe County (RTC) are listed below:  Average per capita daily travel time will not increase above 2000 levels more than 20% by 2008; 30% by 2018; and 40% by 2030 and beyond.  The minimum transit modal share will be 3% by 2013, 4% by 2018 and 6% by 2030 and beyond.  By 2013, there will be uniform policies and standards for the location and installation of sidewalks in the region adopted by the local governments.

The RTC is the public body responsible for the transportation needs throughout Reno, Sparks, and Washoe County, Nevada, an area with a population of just over 400,000.

THE ROLE OF THE MPO/RTPO

The Benton-Franklin Council of Governments (BFCG), as lead agency for the MPO and RTPO, facilitates a continuous, cooperative, and comprehensive transportation planning process. The BFCG will lead in the cooperative development of performance objectives for the MPO and the collection of data to monitor system performance.

Collectively, member jurisdictions and agencies in the MPO should assess what is, or can be, periodically and effectively measured and evaluated. Based on that information, decisions should be made concerning what is tracked over time. The critical component in this process is committing to increments of change, or objectives. These objectives, targeted limits of acceptable change, are included as part of the Plan.

This plan provides a factual basis for making decisions concerning the transportation future of the region. Implementation is an ongoing process. The vision of the Regional Transportation Plan will not be built in the short run, but will act as a path in achieving long-term transportation goals.

NEXT STEPS

1. The primary next step is to develop, adopt and implement objective-driven performance measures for the regional transportation system to ensure measured progress toward achieving the goals of subsequent RTPs.

2. The BFCG will form a committee of MPO jurisdictions and agencies to begin discussions to identify and describe performance objectives for inclusion in the 2016-2035 Regional Transportation Plan.

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CHAPTER ELEVEN – PUBLIC AND AGENCY INVOLVEMENT

The following chapter details the public involvement process for the Metropolitan/Regional Transportation Plan (M/RTP) 2012 revisions. Public involvement information for the 2011 Plan is contained in Appendix J.

JURISDICTIONAL REVIEWS

In compliance with 23 CFR Section 450.316(b), the BFCG in July 1994 adopted “Public Involvement Procedures for Transportation Planning” (last updated in 2008). The proactive process for development of pl\ans and programs affords opportunity for participation by public agencies and officials, private citizens, special interest groups, community groups and organizations, minority groups, and private transportation providers.

Each regional agency/jurisdiction had the opportunity to review and comment on the draft revisions made to the M/RTP throughout the development of the revisions. Simultaneous reviews were made by WSDOT (region and Olympia), the Federal Highway Administration, the Federal Transit Administration, the Confederated Tribes of the Umatilla Reservation, and agencies responsible for environmental protection, wildlife management, land management, and historic preservation.

PUBLIC NOTIFICATION

Paid advertisements were published in the Tri-City Herald. The advertisements announced the public meeting held at the BFCG office on Monday, April 16th and the availability of the draft M/RTP revisions for public review on the BFCG website (www.bfcog.us). Requests by individuals for a printed copy could be sent via USPS.

The public meeting included displays of maps and a Power Point presentation with printed copies of the document for review.

A general notice was mailed to local media, state and federal legislators, federal agencies, regional associations, schools, public and private transportation providers, chambers of commerce, minority group organizations, freight-reliant businesses, emergency service providers, bicycle groups and advocates, human service agencies, private industry, and unions. The written notification invited interested parties to sign up for public meeting notification via email at [email protected].

Additional detail and discussion of the public outreach process is available in Appendix J, which contains comments made regarding the revisions to the M/RTP during the public review period beginning April 2, 2012 and ending April 30, 2012.

2010 TRANSPORTATION SURVEY

During the summer of 2009, the BFCG transportation staff requested input from the Tri-MATS committees regarding the public involvement process and how it might be improved. A review of past public involvement efforts and possible new strategies were discussed.

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Tri-MATS recommended the following elements be part of public involvement for the update of the M/RTP:

 Transportation Survey  Focus Group (Several attempts were made to meet with the young professionals of the Community Round Table. Scheduling became a challenge that could not be worked out.)  Public Meetings

BFCG and Tri-MATS agreed that all public involvement for the M/RTP would be prepared “in-house” using existing resources.

The 2010 Transportation Survey was developed and then approved through the Tri-MATS and BFCG Board.

The survey was web-based using Survey Monkey (www.surveymonkey.com ) as the internet location to post the survey and collect responses. The survey was open to the public beginning in February 2010 and closed July 2010. The survey link was emailed to various distribution lists and publicized in the BFCG Newsletter.

The 2010 Transportation Survey titled “It’s Your Turn” ran concurrently with the web-based survey for the Columbia River Crossing Study -Tri-Cities. Because of that, BFCG staff chose not to spend resources to publicize the M/RTP Transportation Survey any further in order for the river crossing study to be at the public forefront and there be no confusion between the two surveys.

The 2010 Transportation Survey received a total of 224 responses. Results of the survey are considered a random, non-stratified sample. The survey does not represent a reliable slice of regional demographics. Taking that into consideration the 2010 Transportation Survey did offer more comments/input from the public than traditional open house meetings have provided in the past.

The 2010 Transportation Survey was seen as a worthwhile exercise and BFCG staff suggests repeating a web-based survey in the future. The survey indicated that public participation increased using an opinion poll and if efforts are made to collect responses from a valid and

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2011-2032 Regional Transportation Plan reliable cross section of regional demographics the BFCG could acquire useful input from the public.

Surveys in the future will not run concurrently with any other high profile regional transportation topics that are requesting comment.

Additional detail and discussion of the 2010 Transportation Survey is available in Appendix K.

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2012 M/RTP ACTIVITIES SCHEDULE FOR REVISIONS DATE ACTIVITY GROUP(S) 4/2/12 Draft M/RTP sent for review TAC/PAC/BFCG Board 4/2/12 Draft M/RTP sent for review Regional Planners 4/2/12 Draft M/RTP sent for review WSDOT Planning ‐ Olympia 4/2/12 Draft M/RTP sent for review FHWA/FTA ‐ Jack Lord/Sid Stecker/Ned Conroy 4/2/12 Draft M/RTP sent for review Public Involvement List 4/2/12 Post to BFCG website General Public 4/4 ‐ 4/9 Legal Ad for Open House@ BFCG General Public COMMENTS ON DRAFT FROM FHWA AND WSDOT BY APRIL 12 4/2/ thru 4/13 Complete materials for M/RTP Open House General Public, TAC, PAC, Board 4/6 and 5/4 BFCG Newsletter Article Mailing list 4/9/12 Draft M/ RTP to Libraries Mid Columbia FINAL COMMENTS ON DRAFT FROM FHWA AND WSDOT BY APRIL 23 May Agendas Tri‐MATS/Board Final Review Draft M/RTP TAC/PAC/BFCG Board May Tri‐MATS M/RTP Recommendation TAC/PAC 04/16/12 M/RTP Open House Public 04/30/12 Written Public Comments due to BFCG May 18th M/RTP Approval BFCG Board 5/21/2012 Print/Mail M/RTP Final Copies WSDOT/FHWA/FTA

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