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PREPARED FOR
WASCO COUNTY.OREGON
AND
UMATILLA COUNTY.OREGON
REPORT ON .INFLUENCE OF ^ UMATILLA AND WASCO COUNTY TOLL BRIDGES IN THE STATE OF WASHINGTON
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HIST Facilities■ - Columbia River Bridge P 388.132 Umatilla Bridge I 3 3166 0005 5 07 7 PREPARED FOR WASCO COUNTY,OREGON AND UMATILLA COUNTY,OREGON REPORT ON INFLUENCE OF UMATILLA AND WASCO COUNTY TOLL BRIDGES IN THE STATE OF WASHINGTON MARCH 1971 TUDOR ENGINEERING COMPANY SAN FRANCISCO CONSULTING ENGINEERS WMhlni^ Oepnw"*®' LOUIS W. RICCS TUDOR ENGINEERING COMPANY RALPH A. TUDOR (1902-1%3) STANLEY H. FROID ASSOCIATED CONSULTANTS CARL W. OTTO CONSULTING ENGINEERS LESLIE A. HELGESSON ROBERT N. JANOPAUL 149 NEW MONTGOMERY STREET NORMAN C. RAAB DAVIS C. TOOTHMAN SAN FRANCISCO, CALIFORNIA 94105 TELEPHONE (415) 982-8338 CABLE "TENCCO" The Honorable Judge O. W, Kortge March 15, 1971 Was CO County Courthouse The Dalles, Oregon The Honorable Judge C. E. Lassen Umatilla County Courthouse Pendleton, Oregon Gentlemen: In conformity with your directives of December 4, 1970, we have investigated the influence in the State of Washington of the Wasco County and Umatilla Toll Bridges, Our findings, together with other pertinent data, are presented in the following report. The study included the collection, interpretation, compilation, and organization of economic and traffic data having a bearing on bene fits attributable to the State of Washington. We are indebted to Mr. Donald E. Heisler of Heisler and Van Valkenburgh, Attorneys at Law, The Dalles, Oregon, for his providing the historical and legal background information for this report. We are likewise indebted to the various state, county and city agencies, local chambers of commerce, and the local merchants and citizens of the study areas for their friendly and helpful cooperation in supplying the required data. Respectfully submitted, TUDOR ENGINEERING COMPANY Stanley H. /P"roid Vice President -1- CONTENTS Page No. LETTER OF TRANSMITTAL i SECTION I SUMMARY 1 SECTION II INTRODUCTION 3 A. STUDY PURPOSE 3 B. STUDY AUTHORIZATION 3 SECTION III HISTORY OF THE BRIDGES 4 SECTION IV CURRENT LEGAL STATUS OF THE BRIDGES 7 SECTION V CURRENT PROPOSAL FOR FUTURE OPERATIONAL RESPONSIBILITY OF THE BRIDGES 8 SECTION VI UMATILLA TOLL BRIDGE 9 A. SOCIO-ECONOMIC CHARACTERISTICS .... 9 B. TRAFFIC CHARACTERISTICS 14 C. CURRENT FINANCIAL STATUS 19 D. EVALUATION OF BRIDGE MAINTENANCE AND REPAIR COSTS 19 E. EVALUATION OF BENEFITS TO THE STATE OF WASHINGTON 21 F. PREDICTED FUTURE GROWTH OF AREA. 22 SECTION VII WASCO COUNTY TOLL BRIDGE 25 A. SOCIO-ECONOMIC CHARACTERISTICS 25 B. TRAFFIC CHARACTERISTICS 30 -11- CONTENTS (Continued) Page No. C. CURRENT FINANCIAL STATUS 35 D. EVALUATION OF BRIDGE MAINTENANCE AND REPAIR COSTS 35 E. EVALUATION OF BENEFITS TO THE STATE OF WASHINGTON 37 F. PREDICTED FUTURE GROWTH OF AREA.. . 38 APPENDIX A LIST OF AGENCIES AND COMPANIES INTERVIEWED AND SURVEY QUESTIONNAIRE FORM 41 APPENDIX B ROAD USER TIME AND DISTANCE COSTS.. . 44 APPENDIX C BENTON COUNTY ROAD DEPARTMENT - ESTIMATED REVENUES 45 APPENDIX D UMATILLA COUNTY ROAD DEPARTMENT - ESTIMATED REVENUES 46 APPENDIX E WASCO COUNTY ROAD DEPARTMENT - ESTIMATED REVENUES 47 APPENDIX F KLICKITAT COUNTY ROAD DEPARTMENT - ESTIMATED REVENUES 48 APPENDIX G UMATILLA TOLL BRIDGE - BOND AMORTIZATION SCHEDULE 49 APPENDIX H WASCO COUNTY TOLL BRIDGE - BOND AMORTIZATION SCHEDULE 50 APPENDIX I UMATILLA TOLL BRIDGE - OPERATING EXPENSES 51 APPENDIX J WASCO COUNTY TOLL BRIDGE - OPERATING EXPENSES 52 -111- CONTENTS (Continued) Page No, LIST OF EXHIBITS EXHIBIT 1 UMATILLA TOLL BRIDGE AREA 11 EXHIBIT 2 UMATILLA TOLL BRIDGE - ZONAL MOVEMENTS 17 EXHIBIT 3 UMATILLA TOLL BRIDGE - TRAFFIC ZONES 18 EXHIBIT 4 UMATILLA TOLL BRIDGE - TRIP PURPOSE 20 EXHIBIT 5 WASCO COUNTY TOLL BRIDGE AREA 27 EXHIBIT 6 WASCO COUNTY TOLL BRIDGE - ZONAL MOVEMENTS 33 EXHIBIT 7 WASCO COUNTY TOLL BRIDGE - TRAFFIC ZONES 34 EXHIBIT 8 WASCO COUNTY TOLL BRIDGE - TRIP PURPOSE 36 -iv~ SECTION I SUMMARY The residents of the State of Washington realize a multitude of benefits by having ready accesses across the Columbia River at The Dalles and at Umatilla. While there are instances wherein actual monetary values can be placed upon these benefits, by and large, only a qualitative inherent, although real, value can be readily proved. The Umatilla Toll Bridge between Plymouth, Washington, and Umatilla, Oregon, forms a vital link in the highway networks between Washington and Oregon. The State of Washington and, in some measure more directly, the residents of counties adjacent to the bridgehead receive the following benefits: The bridge is a part of the route serving interstate traffic between the Seattle-Puget Sound area, through the Yakima Valley to eastern Oregon and points easterly thereof. At present, this results in users' cost savings of $75, 000 per year for Washington drivers. The bridge and SR 14 offer a shorter route than the alternative US 395/730 route for traffic between Spokane- 3.nd western Umatilla County and points downriver. This results in users' cost savings of approximately $210, 000 per year for Washington drivers. Merchants in the Tri-City area realize a net balance . of retail sales of approximately $900, 000 per year from Oregon patrons utilizing the bridge. The bridge allows Oregon residents to utilize the recreational, restaurant, entertainment and business facilities of the Tri-City area, including the regional airport, thus bringing many dollars into the Tri-City area economy. The potential growth of irrigated farming on both sides of the Columbia River, if realized, will greatly contribute to the traffic desiring to cross the Umatilla Toll Bridge. -1 - The Was CO County Toll Bridge crossing the Columbia River at The Dalles, Oregon basically serves traffic having desires between Klickitat County, Washington, and Wasco County, Oregon. The State of Washington, and, to a large measure the residents of Klickitat County, receive the following benefits: Washington residents are provided with a direct and convenient access to an established business, cultural and commercial center at The Dalles. This is borne out by the fact that the majority of the bridge users are Washingtonians. Klickitat County receives additional property taxes from residents attracted by the amenities at The Dalles but able to live in Washington, where living costs are less than those in Oregon. Proximity of The Dalles allows Klickitat County to be able to attract a pool of workers to its anticipated industries. The Dalles residents and the through traffic using the bridge represent tourist dollars to Washington's recreational areas. The bridge provides the residents of Klickitat County greater mobility and better communications for their travels, recreation, work and goods. -2- SECTION II INTRODUCTION A. STUDY PURPOSE The purpose of this study is to determine the advantages re ceived by the State of Washington by virtue of Washington State resi dents having the use of the Umatilla and Wasco County Toll Bridges. To achieve this end, in-depth surveys were instigated, in which interviews were held with Umatilla and Wasco County Toll Bridge users .on December 17 through 21, 1970, and also January 15 and l6, 1971. The various state, county, and local governmental departments, local chamber of commerce, local merchants, and civic leaders were likewise interviewed, A list of the interviewees and a copy of the bridge user survey questionnaire are contained in Appendix A. Research was conducted into the bridges' historical and legal foundations, and previous traffic histories. The data received were then interpreted, compiled, and organized, conclusions were drawn, and the data finally put into a form represented by this report, B, STUDY AUTHORIZATION The study, deemed necessary following the Umatilla and Wasco County Toll Bridges conference in Olympia, Washington, with the Washington State Director of Highways, on November 4, 1970, was authorized for accomplishment by letters dated December 4, 1970, from the Umatilla and Wasco County Courts. This report has been prepared by Tudor Engineering Company, under the direction of Stanley H. Froid, Vice President, Paul E. Potter, Chief Engineer, and Donald J. Bruzzone, Project Engineer, Paul E. Potter, P. E. March 15, 1971 -3- SECTION III HISTORY OF THE BRIDGES The natural barrier of the Columbia River acted as a deterrent to trade and mobility between Washingtonians and Oregonians in the mid-Columbia region prior to the construction of the Bridge of the Gods at Cascade Locks. Even after construction of that bridge, it became obvious that additional river crossings would become necessary easterly of that point. One of the first attempts to instigate an additional crossing, Rorick vs. Dalles City (1932) 140 Or. 342, 12 p. (2 d) 762, was un successful. An alternative interim solution to the problem was afforded by privately operated ferries. During the early part of the 1940 decade, a bill was prepared for introduction into the Oregon Legislature provid- ing for a free ferry to be operated by the Oregon State Highway Commission; however, this proposal was never adopted. During this same period, overtures were made to the Oregon State Highway Department requesting that they proceed with an interstate bridge project in the mid-Columbia area. This request was laid aside. The next attempt resulted in the passage of Chapter 209 Oregon Laws, 1949 by the Oregon Legislature giving the counties, cities or port districts of the State of Oregon authority to construct interstate bridges. This is the basic law under which Wasco and Umatilla Counties proceeded with construction of their respective interstate bridges. The question of taxation developed and Chapter 440 Oregon Laws, 1949, was adopted by the Oregon Legislature providing for reciprocal tax exemption. This reciprocal tax exemption measure of the Bridge Authority Law was re pealed in 1951 by Chapter 398 Oregon Laws,1951, which enacted a sub stitute reciprocal tax exemption law. The Washington Legislature also followed suit by adopting a similar measure. A feasibility study for the Wasco County Toll Bridge was com pleted during 1949, in which the Oregon State Highway Commission; Wasco County, Oregon; and the Washington Toll Bridge Authority cooperated. Each agency contributed a like amount to finance the study, which sums were later repaid out of the proceeds from the sale of the Wasco County Toll Bridge bonds. The feasibility study showed economic justification for an interstate bridge in the vicinity of The Dalles. -4- In 1949, a suit was brought under the Declaratory Judgment Act challenging the validity of the proposed issuance and sale by Wasco County of "Toll Bridge Revenue Bonds." "The Toll Bridge Revenue Bonds" aggregated $2,850, 000 for the purpose of constructing, main taining, and operating a toll bridge across the Columbia River near The Dalles, Oregon, together with approaches and connecting highways, and also included the acquisition of a ferry and appurtenant properties in close proximity to the site of the bridge. The Oregon Supreme Court approved the project in June of 1950, as per Eddins vs. Wasco County, et al (1950), 189 Or. 184, 219 P. (2 d) 159. Wasco County then proceeded with construction. Right-of-way was acquired in which Klickitat County, Washington, and Wasco County, Oregon, cooperated. The Dalles Dam project, immediately upstream from the partially completed Wasco County Toll Bridge, was underway and it was determined that the scouring action of the water passing over the dam might endanger the bridge supports then in place. The U. S. Government then filed condem nation actions condemning the bridge from its approach road intersection with Washington Sign Route (SR) 197 on the north to its intersection with U.S. 30 Highway on the south. After months of negotiations this litigation was settled with the U. S. Government paying to Wasco County the sum of $1, 994, 000. Additional revenue bonds were issued in the amount of $650, 000 to cover the additional construction costs necessitated by reconstructing the bridge at a new location downstream. Additional right-of-way was acquired, and the new bridge erected. The Wasco County Toll Bridge was opened for traffic at its new location on December 18, 1953. A feasibility study for the Umatilla Toll Bridge was completed during 1952, in which the Oregon State Highway Commission; Umatilla County, Oregon; Benton County, Washington; and the Washington Toll Bridge Authority cooperated. Each agency contributed a like amount to finance the study, which sums were later repaid out of the proceeds from the sale of the Umatilla Toll Bridge bonds. The feasibility study showed economic justification for an interstate bridge approximately three miles downstream from the McNary Dam. Utnatilla County, having procured $5, 100, 000 through the sale of revenue bonds, proceeded with the acquisition of right-of-way, purchase of the Umatilla Ferry, and the construction of the bridge4 The Umatilla Toll Bridge was opened for traffic on April 15, 1955. -5- In retrospect, the bridge projects are an excellent example of interstate cooperation. It cannot be emphasized too strongly that without the support of the Oregon State Highway Commission, the Washington State Highway Commission, the Washington Toll Bridge Authority, the then Governors of both States, the Attorney Generals of each and the numerous State Legislators of both States, the Cities of The Dalles and Umatilla, The Port of The Dalles, the Counties of Klickitat, Wasco, Benton, and Umatilla, and numerous individuals and firms, the projects would not have succeeded. The projects have served the prople of Washington and Oregon well and have contributed much to the economic development of the regions involved. -6- SECTION IV CURRENT LEGAL STATUS OF THE BRIDGES The problem currently facing the Counties of Umatilla and Wasco is keynoted by 33 U.S.C.A. Section 529, which generally pro vides that the rates of toll (charged on interstate bridges over navigable waters, the construction of which is approved after August 2, 1946) shall, in addition to covering maintenance, repairs and operation costs of the bridge, be sufficient to provide a sinking fund sufficient to amortize the bridge cost as soon as possible under reasonable charges, but with in a period of not to exceed 30 years from the bridge completion date. Then the Act provides, as follows: 'After a sinking fund sufficient to such authorization shall have been so provided, such bridge shall thereafter be maintained and operated free of tolls." (Emphasis supplied) The mandate of this section of Federal Law is clear; namely, that when the bonds have been retired the bridge shall thereafter be main tained and operated toll free. The operation of this law would place un due hardships on Wasco and Umatilla Counties, owing to the continuance of operating and maintenance costs without the offsetting revenues. The Honorable William Kortge, Wasco County Judge, in cooper ation with Umatilla County, undertook through Congressman Ullman, an amendement to this law. Congressman Ullman thoroughly investi gated the matter, but reported the chances of securing legislation favorable to Wasco County and Umatilla County would not be feasible. -7- SECTION V CURRENT PROPOSAL FOR FUTURE OPERATIONAL RESPONSIBILITY OF THE BRIDGES Wasco County and Umatilla County, cooperating, have approached the Oregon Highway Commission with the request that the Oregon High way Commission take over the Wasco County Toll Bridge and the Umatilla Toll Bridge at the time when the tolls on each bridge have been retired. The Oregon Highway Commission, in Mr. R. L. Porter's letter of October 2, 1970, has agreed to place the bridges on the state highway system and to assume maintenance responsibility on the basis that Washington will cooperate, with each State assuming fifty percent of the obligation. This agreement is contingent upon the respective counties placing their bridges in excellent condition with respect to maintenance, prior to the proposed transfer of responsibilities. The specific items of work required by the Oregon Highway Division, together with their estimated costs, are con tained in a letter from Mr, R. L. Porter, Oregon State Highway Engineer, to Mr. G. H. Andrews, Director of Highways for the State of Washington, dated November 17, 1970. -8- SECTION VI UMATtLLA TOLL BRIDGE A. SOCIO-ECONOMIC CHARACTERISTICS The area within a radius of 50 miles of the Umatilla Toll Bridge is primarily agricultural in nature, and includes livestock, food proces sing, grain, and fruit industries. Irrigated agriculture and food proces- sing is growing rapidly. The area also contains leading factors in the nuclear research and nuclear industry, centered at the Hanford Works, Washington. The following companies, agencies, and schools have nuclear facilities located in the general area: Federal Support Services, Inc. , Battelle-Northwest Laboratories, Donald W. Douglas Laboratories, Computer Sciences Corporation, Sandvik Steel Company, Jersey Nuclear, The Atomic Energy Commission, Washington State University, Oregon State University, and the University of Washington. Fertilizer plants are operated by Chevron Chemical Company, Collier Carbon Company, and Phillips Pacific Chemical Company. Cudahy Company maintains a meat-packing plant, and Boise Cascade maintains a pulp and paper plant. The transportation industries are well represented. The Tri- City area is served by the Burlington Northern and Northern Pacific Rail ways. The Burlington Northern has developed major transportation facilities in Pasco, including a $5 million installation of automatic re- tarder and classification yards, and a truck-rail piggyback operation. The Umatilla Toll Bridge area is served by the Burlington Northern to the north of the Columbia River, and the Union Pacific to the south. The area around the Tri-Cities (Pasco-Kennewick-Richland) is increasingly becoming the center of retail trade for the entire area of southeastern Washington and northeastern Oregon, especially with the presence of Columbia Center, a large new shopping center between Kennewick and Richland, and other large department stores. The area is shown in Exhibits 1 and 3, The Umatilla Toll Bridge acts as a convenient and direct traffic route not only serving interstate traffic in the eastern portion of Washington and Oregon, but also connecting the Tri-City area to the Umatilla- Hermiston area. It is an important route for interstate traffic, as shown -9- w I - r '. y x i ■ iffjiu^ivli' 'i Iff! ■■ 'j\',}k - e. . ' • • -U' *' v' f ■ : f-; r \a'V . •; ! ■: . A fi? j -V ■> -.r ■; 'S 'I, •■ J i -; kV4it \ ^" KS'kh'- , m. il >'t;:; '■ fi: ■. j! i S '>',*r-, ! ^ -■"' ■..■ ,S il l A" :; • A.< UMATILLA TOLL BRIDGE -10- BENTON COUNTY FRANKLIN COUNTY MeAOAMS CORNELL 26g HLOTUS COLO CREEK SULPHUR MESA ELTOPIA WALLA WALLA COUNTY WEST RICHLAND prescottI bolles BENTON CITY RlCHLAND/*v PASCO LAMAR / [ ''WAITSBURG KIONA GIBBON KENNEWIC BURBANK HAOLEY V I prosseT WO RIVERS J25J ;i2 hills 221^ 114 REESE ja WALLA WALLA • UMATILLA TOLL BRIDGE .^J/r ^TOUCHET f _J PLYMOUTH I paTERSON Colujjl MILTON FREEWATER WHITCOMB MATILLA/g^m^NARY VHOLDMAN I ^HERMISTON WESTON WALLOWS PRONANCE HJii^ANFIELD ATHENA^-"— C204 JQLLGATE BOARDMAN ADAMS ewing RIETH CECIL PENDLETON lONE •O—O MEACHAM JORDAN LEXINGTON VINSON morrow county PILOT ROCK *HEPPNER r-^"" RUGGS i_UMATILLA COUNTY HARDMAN L. olehMan springs UMATILLA TOLL BRIDGE AREA STATUTE MILES TUDOR ENGINEERING COMPANY MARCH 1971 10 10 20 EXHIBIT I -11- by the results of the survey of bridge users conducted during December, 1970. The bridge plays an important part in the movement of traffic between Spokane and Portland, Tri-Cities and Portland, Seattle, Yakima and Tri-Cities and points to the southeast on the routes to Boise and Salt Lake City. The Umatilla Toll Bridge offers shorter and more direct routes for a majority of this interstate traffic, as will be further analyzed in subsequent sections of this report. The population of these respective areas has grown in the years from i960 to 1970 as shown in Figure 1. Although the growth rates are relatively higher in Hermiston (9. 1 percent) and Umatilla (10 percent) than in the Tri-City area (4. 3 percent), the Tri-City base in much larger. The future growth predictions of the U. S. Bureau of Census and the Washington State Census Board indicate that Benton and Franklin Counties are anticipating much greater growth between 1970 and 1980 than Umatilla County (49 percent and 96 percent vs. 3 percent, respectively). Like wise, the State of Washington, Department of Commerce and Economic Development predicts that growth in the diversified manufacturing section will be sustained into at least the next few years and higher industrial levels and greater population levels will influence the continued strong upswing in the non-manufacturing activities. This, of course, does not consider local fluctuations such as the current possible government closing of the K and N reactors at Hanford, which would possibly represent a loss of some 5, 000 jobs in the immediate area. The rationale for the higher projected figures in Benton and Franklin Counties becomes more credible when one considers the growth- oriented nature of Tri-City economy, which is discussed later in this report. The importance of the Tri-City area as a regional shopping center for residents of the mid-Columbia region between northeastern Oregon and southeastern Washington becomes apparent in light of the re sults of the bridge traffic survey; and patronage studies performed by the owners of the Columbia Center shopping complex. There is no compa rable shopping center in the entire region with the amount and variety of shopping as that available at Columbia Center. While the traffic aspects will be discussed in the following section, it is interesting to note the results of one survey performed by the management of Columbia Center. This survey, consisting of traffic counts and questioning of the shopping center patrons during a nine-day period in August 1970, illustrated that 5. 3 percent of all patrons during the survey came from the south of the Columbia River, with 5. 7 percent of these shopping once or twice a week, and 35. 4 percent shopping once a month or more often. The reasons given -12- FIGURE 1 POPULATION TRENDS AND FORECASTS VICINITY OF UMATILLA TOLL BRIDGE YEAR AREA 1950 I960 197oZi 1980 1985 /2 /2 Umatilla County 41,703 44,352 44,923 47, 000^ 48, 000^— Pendleton 11,774 14,400 13, 197 17,OOoZl Hermiston 3, 804 4, 402 4, 893 Umatilla 883 617 679 Tri-City Area 42,143 52, 314 54,563 Pas CO 10,228 14, 522 13, 895 Kennewick 10,106 14, 244 15,017 Richland 21,809 23, 548 25,651 Benton County 51,370 62, 070 66,359 98, 068^ Za Franklin County 13, 563 23,342 25,491 49,014^ Sources: /_1 1970 U.S. Census University of Oregon, Bureau of Governmental Research and Service Zl U. S. Bureau of Census and Washington State Census Bureau -13- for shopping at the Columbia Center included convenience (31. 2 per cent), atmosphere (26. 4 percent), variety (13.5 percent), and controlled temperature via heating and air conditioning of the mall (10. 5 percent). The amount spent by patrons from south of the Columbia River during 1970 was in excess of $1, 000, 000 for the Columbia Center alone. This does not take into account the amounts spent at the local Valu-Mart dis count store or the multitude of establishments in Pasco, Kennewick, and Richland. Over five percent of the circulation of the Tri-Cities Herald, together with its paid advertising, emanates from south of the Columbia River, illustrating that the area south of the Columbia River is deemed important to Tri-City retail merchants who advertise in the Tri- Cities Herald. B. TRAFFIC CHARACTERISTICS The traffic networks of immediate importance in this study include, firstly, the alternative routes connecting the Tri-City area and the areas south of the Columbia River such as Pendleton, Hermiston and Umatilla; and secondly, the Umatilla Toll Bridge route connecting Seattle-Yakima traffic and points to the southeast such as Boise and Salt Lake City. The two routes under consideration in the first network include the Washington SR 14 and the Umatilla Toll Bridge - the short est and most direct route for traffic between the Tri-City area and Umatilla-Hermiston areas; and the alternative-U. S. Highway 395/730 route paralleling the Columbia River to the east. Both local Tri-City to Umatilla-Hermiston-Pendleton traffic and through interstate traffic between Spokane and Portland utilize the subject routes in this first net work. Both routes are two-lane undivided highways. The SR 14 route has been improved with respect to design characteristics within the last three years and is the subject of future planned improvements over the next three to six years. The U. S. 395/730 route, on the other hand, is somewhat longer for the majority of north-south trips in the subject corridor. The results of a time and distance study of these two routes are set forth later in this report. The two alternative routes under consideration in the second network include those routes connecting Seattle-Yakima traffic with points to the southeast along Interstate Route 80 N to Boise and Salt Lake City. These alternative routes include SR 221 - SR 14 - Umatilla Toll Bridge - Oregon 32 - Interstate 80 N; and SR 12 - U.S. 395/730. Con sidering the respective distances from Prosser to Pendleton of 114 miles, and 126 miles, respectively, it becomes apparent that alternative with the Umatilla Toll Bridge is the most direct and convenient route, especially for traffic bound for the Umatilla-Hermiston area. -14- The importance of the Umatilla Toll Bridge to through non local interstate traffic can be seen from the results of the December 1970 bridge survey. Approximately 13 percent of the total bridge traffic traversed between Spokane and Portland, 9 percent between the Tri-Cities area and Portland, 9 percent between Seattle and points to the southeast on the routes to Boise and Sale Lake City, and 8 percent between Yakima-Tri-Cities and the southeast on the routes to Boise and Salt Lake City. This 39 percent of total bridge traffic is non-local inter state traffic. It is interesting to note that a similar survey performed by Tudor Engineering Company during November of 1964 showed that the Seattle bridge traffic to points southeast on the route to Boise and Salt Lake City were 11 percent of total bridge traffic as compared to 9 percent under the December 1970 survey. The volume of this traffic during the latter survey was probably below normal because of adverse weather in the mountain passes during the survey period. Like wise, the Spokane to Portland traffic amounted to 5 percent of the total bridge traffic in November of 1964, as compared to 13 percent under the December 1970 survey. This increase can be attributed to improve ments to SR 12 through Pasco and SR 14 to the Umatilla Toll Bridge. The average daily traffic (ADT) crossing the Umatilla Toll Bridge for the calendar years 1956 to 1970 is as shown in Figure 2. The results of the ADT vehicular volumes are a further indication of the growth of traffic in the study area. The bridge traffic growth rates for the years 1968, 1969, and 1970 amount to 8. 3, 13. 4, and l6. 4 percent, respectively. The yearly increase in traffic is growing steadily, and considering the amount of potential and planned future growth, will no doubt continue to increase in the foreseeable future. The largest percentage of traffic to cross the bridge during the survey period was xccal in nature (32 percent of total traffic), and traversed between the Tri-City area and the Umatilla-Hermiston area. The next largest percentage was through or interstate traffic (13 per cent of total traffic) traversing from Spokane to Portland. The next largest percentages (9 percent each) represented local traffic traversing from Pendleton to Tri-Cities, through interstate traffic from Portland to Tri-Cities, and through interstate traffic traversing from Seattle to Interstate 80 N to the southeast. Approximately 15 percent of the bridge traffic is comprised of vehicles which normally would use US 395 from Pendleton and US 395/730 into Washington, While no surveys were made of traffic on US 395, the officially signed route in Oregon, analysis of traffic data from the Oregon State Highway Division indicates that the Umatilla Toll Bridge route may attract a majority of this traffic. Apparently the advantages of the portion that can thus be freeway travel -15- offset the shorter distance, but over a narrow and poor alignment, of US 395, even including the bridge toll. The tabulations listing percentages of total traffic crossing the bridge during the survey period by zones of origins and destinations, are provided by Exhibit 2, The traffic zone boundaries are illustrated in Exhibit 3. FIGURE 2 UMATILLA COUNTY TOLL BRIDGE TRAFFIC Average Daily Traffic (ADT) Year ADT 1956 836 1957 832 1958 860 1959 916 I960 940 1961 1034 1962 1200 - (Seattle World's Fair) 1963 1113 1964 1170 1965 1304 1966 1323 1967 1401 1968 1515 1969 1717 1970 2001 Source: Umatilla County Toll Bridge, Statement of Bridge Operations. -16- 9%ZONES 2 a I ZONE MAJOR AREA 1 UMATILLA-HERMISTON 2 PENDLETON 3 PORTLAND 4 BURNS- BEND 5 180N TO SOUTHEAST 10 NORTH BRIDGEHEAD 1 1 TRI-CITIES 12 YAKIMA 1 3 LONGVIEW-KELSO 14 SEATTLE 15 SPOKANE UMATILLA TOLL BRIDGE PERCENTAGES OF TOTAL BRIDGE TRAFFIC ZONAL MOVEMENTS TUDOR ENGINEERING COMPANY MARCH 1971 _ EXHIBIT 2 -17- WASHINGTO SPOK AP TACOSaA 0 LYMPIA UOSES LAKE »A8C0 i W H ■ |£^ S A LM ON ^ SO_Ofa!>Atg /MJHOk f^EEWATEW PORTLAND THS DALLES! \eO^^5 ""'^ 36LEM EuaENE BEND BURNS OREGON STATES OF WASHINGTON a OREGON UMATILLA TOLL BRIDGE TRAFFIC ZONES BRIDGE USER STUDY MILES TUOOR ENGINEERING COMPANY MARCH 1971 50 50 EXHIBIT 3 -i: The bridge-user survey in December of 1970 yielded the fol lowing trends with respect to person-trip desires for non-local inter state traffic: Percent of Total Destination Destination Trip Purpose Traffic Seattle Business 58 Seattle Social-Recreation 26 Spokane Business 58 Spokane Social-Recreation 28 Tri-Cities Shopping 27 Tri-Cities Business 25 Tri-Cities Social-Recreation 18 The overall bridge traffic trip-purposes are illustrated in Exhibit 4. C. CURRENT FINANCIAL STATUS The Umatilla Toll Bridge has been enjoying increasingly large rates of yearly traffic growth and commensurate revenues in recent years. Based upon the assumptions that revenues will increase at a yearly rate of approximately ten percent, and maintenance costs will be held to those projected in the following section of this report, it has been estimated that the elimination of tolls can be anticipated during April 1974, at which time the bridge will be in an excellent condition of maintenance with its bonded indebtedness having been retired. Appendix G presents the bond amortization schedule illustrating the financial status of the bridge to that date. Appendix I likewise,presents the Umatilla Toll Bridge's operating and maintenance budget. D. EVALUATION OF BRIDGE MAINTENANCE AND REPAIR COSTS In accordance with the requirements and estimates of the Washington State Highways Department, the Umatilla Toll Bridge will require yearly maintenance and repair expenditures, commencing after the retirement of bonded indebtedness, of approximately $39, 000 in terms of year 1971 costs. These expenditures include an allowance for maintenance, including painting of the bridge every ten years, maintenance of the approach and deck roadways, and all other miscellaneous expendi tures, assuming the States of Washington and Oregon accept the full responsibility of the bridge. As stated earlier, this presupposes that the bridge will be placed in excellent condition, satisfactory to both the -19- DESTINATIONS OF VEHICLES INTERVIEWED DURING STUDY UMATILLA TOLL BRIDGE PERCENTAGES OF TOTAL BRIDGE TRAFFIC TRIP PURPOSE TUDOR ENGINEERING COMPANY MARCH 1971 EXHIBIT 4 -20- Washington State Highways Department and Oregon State Highway Di vision, prior to their assuming any bridge responsibility. As previously stated, it is estimated that the Umatilla Toll Bridge will be in a position to retire its bonded indebtedness, and like wise its tolls, during April 1974. It is at this point that the possible takeover of the bridge by the States of Oregon and Washington would be appropriate. For informational purposes, the revenues of the Road Depart ments of both Benton and Umatilla Counties are presented in Appendices C and D, respectively. E. EVALUATION OF BENEFITS TO THE STATE OF WASHINGTON On the basis of present levels of development, certain benefits can be claimed by residents of the State of Washington due to the presence of the Umatilla Toll Bridge. It is generally recognized that the typical motorist and his passengers consider distances and times spent in transit to be worth a certain amount of money. Thus, savings made possible in personal time and automotive distance, automobile, and fuel costs are of benefit and value to those realizing those savings. An analysis of the origins and destinations of bridge-users during the study period, including the distances and times which they were able to save by utilizing certain shorter and more direct routes, was undertaken. The costs used in these studies assume that the bridge tolls were removed, but no increased traffic diversion was considered. Some typical unit costs and assumptions considered in calculations are as indicated in Appendix B. The Umatilla Toll Bridge forms a vital link in the present route via SR 221 and SR 14 for Seattle-Puget Sound-Yakima Valley traffic to Eastern Oregon and points southeasternly thereof. The alternative route for this traffic involves the use of SR 12 from Prosser to Wallula Junction and then US 395/730 to Pendleton, Calculations indicate that the bridge route results in user benefits of approximately $75, 000 per year for Washington drivers. These savings should continue for several years into the future until a major change in highway patterns is es tablished. The availability of Washington SR 14 and the Umatilla Toll Bridge as a more direct north-south route from the Tri-Cities area to points southerly, southwesterly, and southeasterly was considered as a benefit to those using it in view of the longer alternative route of -21- U.S. 395/730, which parallels the Columbia River. Calculations indi cated that the availability of the Umatilla Toll Bridge directly contributed benefits of approximately $210, 000 per year for Washington drivers on the basis of the times and distances saved in obtaining their respective destinations. Because of the advanced and growing state of retail trade in the Tri-Cities area, the bridge survey indicated that a net balance i. e. , total sales to Oregonians in Washington 1 ess total sales to Washingtonians in Oregon, of retail sales of approximately $940, 000 per year represented the purchases by Oregonians in the Tri-Cities area, with the bridge being the communications link. These results compare favorably with a study performed by the Columbia Center management, which indicated that for that shopping center alone, approximately $1, I6O, 000 of retail sales for 1970 represented purchases by Oregonians, Making the conservative assumption that 75 percent of these patrons cross the Umatilla Toll Bridge, we can assume approximately $870, 000 of retail sales can be attributed to the bridge's availability. With the termination of tolls in the future, the bridge will contribute even more to this phase of the Washington economy. The presence of the Umatilla Toll Bridge also enables the resi dents of Umatilla and Morrow Counties in Oregon to utilize and bring tourist dollars to the various recreational facilities in the Washington area, such as fishing, restaurants, entertainment, golfing, boating, water skiing, and camping. Likewise, the Tri-Cities area is becoming an important regional convention center having an abundance of ac commodations, meeting places, a regional airport, and related facilities. Results taken from a study with respect to tourism, performed by the Oregon State Highway Division for 1970, estimated that 286, 921 person-trips were made from, and presumably to Oregon,via the Umatilla Toll Bridge. Thus, the bridge acts as a means of travel for recreation to be enjoyed by Washingtonians, Oregonians and tourists from other states. The Umatilla Toll Bridge does and will continue to play an important part in the regional growth of the mid-Columbia area by aiding the communication and mobility of people and goods throughout the area. F. PREDICTED FUTURE GROWTH OF AREA The area surrouding the Umatilla Toll Bridge has the potential for considerable growth in the next ten to twenty years. -22- The Horse Heaven Hills in Washington is an area of about 880, 000 acres which is bounded by the Columbia River on the south and the hills above the Yakima River on the north. The area presently supports a sparse population of approximately 600, primarily engaged in grazing activity near the Columbia River and dry wheat farming at the higher elevations. Several large irrigated farming projects are in the planning stages, and approximately 6, 000 acres of irrigated farming has been started in several areas, both upstream and downstream from the bridge. In 1970, a study by Washington State University was completed with respect to the irrigation and development potential of the Horse Heaven Hills. That study projected a potential of 190, 000 acres for irrigation by 1990. This development, including processing plants, will generate a large increase in population, including the possibility of the development of several small villages in the area. This development should also generate a large increase in traffic across the Umatilla Toll Bridge to the trade centers in Umatilla and Hermiston, Oregon. Similar development of irrigated farming is taking place on the Oregon side of the Columbia River. The tax situation in Oregon is not as conducive to the development of irrigated land as is the case in Washington. However, the Port of Morrow County, in Boardman, Oregon, estimates that 50, 000 acres will be under irrigation in the next 12 years. The City of Boardman plans to have a population of 7, 500 by that time. Any increase in population in Oregon will result in increased traffic across the bridge to the Tri-Cities for shopping and services. In the Umatilla and Hermiston area, a new wheat processing plant is planned for this year along with other food processing plants.. A far-reaching project which has been in its planning stage for many years is the multi-purpose Umatilla Basin Project of the U. S. Bureau of Reclamation, which is primarily involved with irrigation for future agriculture. This multi-million dollar project would take many years to complete if implemented, and would have a tremendous impact on the Umatilla Toll Bridge traffic. The rate and amount of irrigation development in this region is dependent on many factors such as the price of farm commodities, the price of money, and other economic elements which may change relatively rapidly, with the possibility that the proposed developments may not take place as planned. However, should the above plans develop, this growth will result in the increasing of traffic placed on the Umatilla Toll Bridge. -23- There is a possibility that constr-uction of a therrno-nuclear power plant of over 1, 000 megawatt capacity could be initiated in the area of the bridge. Proposed sites include the Cold Springs area up stream from Umatilla, the Boardman area, and in the Glade Creek area in the Horse Heaven Hills. If such a plant were constructed in Oregon, the expertise for the plant operation would probably come from Richland across the Umatilla Toll Bridge. Other projected nuclear power developments planned for the Tri-Cities area include Washington Public Power Supply's anticipated laboratories at Richland, ARCHO Chemical Company's proposed plant at Hanford, Pacific Northwest Utilities' proposed facilities at Hanford, and Nuclear Engineering Company's proposed facilities at Hanford. The Chevron Chemical Company is likewise planning to construct a fertilizer plant in Kennewick. The rate and amount of industrial development in this region is likewise dependent on many economic factors, including federal appropriations. However, any growth should result in an increase of bridge traffic. Also in light of the above planned developments, the bridge will become increasingly more important in the function that it plays for the interstate traffic of goods and people. -24- SECTION VII WASCO COUNTY TOLL BRIDGE A. SOCIO-ECONOMIC CHARACTERISTICS The area within a radius of 50 miles of the Wasco County Toll Bridge is approximately two-thirds agricultural plateau and one-third forest. The topography ranges from a 100-foot elevation along the Columbia River, rising to a 3, 500-foot elevation in agricultural sections, to a 5, 700-foot elevation in forested areas. The area along the Columbia River supports an industrial-based economy, together with a regional shopping and business center. The Harvey aluminum reduction plant, with a capacity of 85, 000 tons of ingots and billets per year, is the major existing factor in the industrial economy, and is located in Wasco County. Areas further inland, and irrigated areas along the stream valleys and the Columbia River, provide support for the agricultural endeavors, in cluding wheat, sweet cherries, and livestock. Inland areas also support a logging economy. The Dalles is located at the head of the Columbia River's deep draft (27-foot deep) ship channel with up-river traffic using barges and tow boats. The Dalles is directly served by the Union Pacific Railroad providing transcontinental passenger and freight service. The Burlington Northern traverses the north shore of the Columbia River. Oregon Trunk, a local affiliate of Spokane, Portland and Seattle, has an extension south ward from Wishram, Washington, ten miles east of The Dalles, through the Deschutes River Gorge to California points. The area is shown in Exhibits 5 and 7. While the decade beginning in I960 witnessed the general stabili zation or decline of population in the vicinity of The Dalles, as indicated in Figure 3, Klickitat County could be in a position to experience rapid future economic growth should the introduction of new manufacturing plants, ancillary related service industries, business, and population growth which accompany industrial production, take place as forecast by the Klickitat Regional Planning Council. Klickitat County's 12.4 percent drop in population between I960 and 1970 was attributed to the migration of workers and their families into the area in late 1959 for the construc tion of the John Day Dam, and their subsequent migration out of the area Upon completion of the dam during mid-1968. -25- < J ' ■>(* rv.-ui ' ■ I '«fei t Jg^Ej, > I s WASCO COUNTY TOLL BRIDGE -26- KLICKITAT COUNTY TROUT LAKE ALOERDALE BLOCKHAU McCREDIE "GOLDENDALE HUSUM ROOSEVELT^ fa WHITE SALMO TOWAL ) BIN6EN )LYLEI VI p .MARYHILL CLIFFS^- SUNDALE MUROOCK \ MOSIER B166S ^ WISHRAM ^ ROWENA THE 'DALLES®^ ^S^WASCO\WASC0 COUNTRY N| TOLL BRIDGE BOYO OUFUR }1 /'/SHERMAN COUNTY WASCOjCOUNTY ApBRASS VALLEY1 SHEARS BRIDGE ( TY6H VALLEY KENT L§ PINE GROVE SHANIKO CLARNO ANTELOPE WASCO COUNTY TOLL BRIDGE AREA TUDOR ENGINEERING COMPANY STATUTE MILES MARCH 1671 10 10 20 EXHIBIT 5 ■27. FIGURE 3 POPULATION TRENDS AND FORECASTS VICINITY OF THE WASCO COUNTY TOLL BRIDGE YEAR AREA I960 1970 1980 1990 / 1 /2 / 2 Wasco County 20,205 20, 133 — 21,200 — 22, 700^— The Dalles 10,493 10, 423^^ / 3 /4 /4 Klickitat County 13,455 11, 959 — 18, 300^^— 23, 850^— Colden dale 2, 536 2, 440'^ . White Salmon 1,590 1, 535^^ Bingen 636 673^ Sources: Zj U. S. 1970 Census Oregon State Highway Department Forecast /_3 Enumerated U. S. Census, 1970, Preliminary Count Klickitat County Regional Planning Council -28- Because of the availability of land in the vicinity of the Klickitat industrial sites and the economics relating to living costs in the subject area, it is anticipated that much of the new housing contributable to this proposed new industry will be located within Klickitat County, Tax differentials also affect the distribution of population and industry in the subject area. A private economic study performed for an industry interested in locating in either Washington or Oregon, showed that living on the Washington side of the Columbia, instead of the Oregon side, would offer a cost-of-living saving of approximately $52 per month to the average household. This difference in living costs is due firstly to the fact that the State of Washington does not levy an income tax on residents, as does Oregon. Secondly, the State of Oregon does not levy sales taxes on purchases, as does Washington on purchases within its boundaries, thus benefiting Washington residents able to purchase goods in Oregon. Thirdly, the real estate property tax per equivalent parcel in Washington is less than that in Oregon. The lesser property tax and the Washington policy of releasing new industry from taxation for the first five years of the industry's operation, both act as an additional in centive to lure industry into Washington. It is likewise anticipated that the increased population will depend upon, and likewise be attracted to the Klickitat County area, because of the proximity of The Dalles. The Dalles will supply the majority of shop ping, professional services, hospitalization facilities, recreational, cultural, and governmental services as it does at the present time. Results of the survey of the Wasco County Toll Bridge users, performed in December 1970, as part of this study, illustrated that approximately 40 percent of all trips of residents of Klickitat County crossing the bridge with destinations in The Dalles, had shopping listed as their trip purpose. The same survey also indicated that at the present time, 22 percent of the Oregon residents crossing the bridge to the north on Thursday and Friday from The Dalles, had work listed as their trip purpose, while ten percent of the Washington residents crossing the bridge to the south on Thursday and Friday, from Goldendale and Wishram, had work listed as their trip purpose. Thus, an interrelationship exists between Wasco and Klickitat Counties, which relationship relies to a great extent upon the presence of the Wasco County Toll Bridge. Further examples of the complementary posture of these counties include the results of the December 1970 bridge survey. It was found that of all Thursday and Friday trips with business listed as the trip-desire, residents of Wasco County and Klickitat County were evenly balanced with ten percent of the residents using the bridge from each county having destinations in the other county. These same -29- percentages and the same complementary balances held with respect to all social-recreational trip desires on the survey days of Saturday and Sunday. An example of both the logistics and cooperation practiced between Klickitat County and The Dalles, is the fact that the majority of State of Washington unemployment compensation claims processed for residents of the southern portion of Klickitat County are processed by the State of Oregon Employment Division office located in The Dalles because of the convenience and availability of service. These claims are then forwarded to the State of Washington Employment Security Department for reimbursement. B. TRAFFIC CHARACTERISTICS The traffic network in the Wasco County Toll Bridge area consists of two major routes which parallel and are adjacent to the Columbia River on the north and south sides, respectively. The route on the north is an improved two-lane Washington State undivided highway, SR.14, The route on the south is the four-lane divided freeway, desig nated as Interstate Route 80 North, and is the primary connection from Portland to the easterly portions of both Washington and Oregon. The Wasco County Toll Bridge, located at The Dalles, acts as a connecting link between these two routes, as does the Hood River Bridge 27 miles to the west, and the Sam Hill Memorial Bridge (Biggs Rapids) 21 miles to the east. In the north-south direction, the Wasco County Toll Bridge serves local traffic via U. S. Route 197, which ties directly to U. S. Route 97 leading to Bend, Klamath Falls, and California to the south, and Goldendale, Toppenish, Yakima, and the Tri-Cities to the north. The average daily traffic (ADT) crossing the Wasco County Toll Bridge for the years 1956 to 1970 are tabulated in Figure 4. The bridge traffic stabilized for the years I960 through 1966 as shown by the ADT figures of those years not varying more than 50 vehicles per day from the average ADT of 1, 340 vehicles. This variance, at its maximiun value, represents only 3. 7 percent of the average ADT. One reason for this stabilization was the availability of the bridge for the transporting of construction workers to and from the John Day Dam construction site during the years from I960 to 1967. The subsequent tapering off of the construction work from 1967 to the mid-1968 completion of the dam project is also reflected in the traffic figures. Likewise, the ADT for the Hood River Bridge, located approximately 27 miles to the west, showed an average yearly increase for the years 1964 through 1968 of 8. 75 percent. That increase in the Hood River Bridge traffic can be -30- FIGURE 4 WASCO COUNTY TOLL BRIDGE TRAFFIC Average Daily Traffic (ADT) Year ADT 1956 1905 1957 1304 1958 1242 1959 1261 1960 1335 1961 1369 1962 1374 Sam Hill Memorial Bridge (Biggs Rapids) Opened 1963 1291 1964 1390 1965 1300 1966 1323 Interstate 80 N, The Dalles to Biggs, Opened 1967 1189 1968 1117 1969 1112 1970 1283 Source: Wasco County Toll Bridge, Statement of Bridge Operations -31- attributed in part to a diversion of Wasco County Toll Bridge traffic, and to the increase in residential housing in the White Salmon area of Washington. The Hood River Bridge traffic remainded stable, how ever, in the 1968 and 1969 years, as did that at the Wasco County Toll Bridge, and the Sam Hill Memorial Bridge, located approximately 21 miles to the east. ADT for the Wasco County Toll Bridge for the 1970 calendar year was 1283 vehicles (representing a 15 percent increase over the previous year), while that for the Sam Hill Memorial Bridge was approximately 1100 vehicles (representing a 26 percent increase over the previous year), and that for the Hood River Bridge was approximately 1800 vehicles (representing an 8 percent increase over the previous year). The omission of tolls on the Wasco County Toll Bridge will cause it to enjoy a temporary increase in bridge traffic due to the diversion of traffic away from both the adjacent Hood River and Sam Hill Memorial Bridges, which bridges will still be maintaining tolls. How ever, with the eventual omission of tolls on either one or both of these adjacent bridges, some traffic would undoubtedly be diverted back from the Wasco County Toll Bridge to the bridge or bridges without tolls. With respect to origins and destinations, approximately 77 per cent of all traffic which crossed the bridge during the survey of bridge patrons of December, 1970, traversed between the City of The Dalles and Zones 10 and 11 representing Klickitat County. Thus, by far the majority of traffic is local in nature. The next largest portion of total traffic was non-local traffic, which used the bridge to traverse the dis tance between Portland and Yakima, amounting to 8 percent of the total bridge traffic. The tabulation listing percentages of total traffic crossing the bridge during the survey period by zones and origins and destinations, is shown in Exhibit 6. The traffic zone boundaries are illustrated in Exhibit 7. The survey undertaken during December, 1970, as part of this study, illustrated that 44 percent of the total bridge traffic had origins and destinations from and to Zones 1 and 10, representing bridgehead to bridgehead traffic. The correlation is high between this 44 percent and the 41 percent figure obtained from an additional study performed in August, 1969 by Tudor Engineering Company for the same bridge under roughly the same circumstances. The bridge-user survey in December of 1970 also yielded the following overall bridge traffic trip-purpose information, further illustrated in Exhibit 8: -32- 8o/oZ0NES3a^^ ZONE MAJOR AREA 1 THE DALLES 2 WASCO COUNTY 3 PORTLAND 4 BURNS-BEND 5 I80N TO SOUTHEAST 10 NORTH BRIDGEHEAD 1 1 GOLDENDALE 12 YAKIMA 1 3 LONGVIEW-KELSO 14 SEATTLE 15 SPOKANE WASCO COUNTY TOLL BRIDGE PERCENTAGES OF TOTAL BRIDGE TRAFFIC ZONAL MOVEMENTS TUDOR ENGINEERING COMPANY MARCH 1971 EXHIBIT 6 -33- WASHINGTOf/J SPOKAN TACOWA 0 LTMPJ A R8C.HL LLA WALLA fS'i L Vu r Rjie. '! e.K PORTLAND PENDLETON SALEM EUSEWE BEND OREGON STATES OF WASHINGTON S OREGON WASCO COUNTY TOLL BRIDGE TRAFFIC ZONES BRIDGE USER STUDY TUDOR ENOINEERINS COMPANY MARCH 1971 EXHIBIT 7 -34- Percent of Total Destination Trip Purpose Traffic Home 45 Shopping 19 Business 11 Personal Business 9 Social Recreation 8 Work 8 Total 100 C. CURRENT FINANCIAL STATUS The Wasco County Toll Bridge has recently shown a moderate increase in yearly traffic volume and corresponding revenues. Steps will be taken in the immediate future to further increase revenues. Such revenue increase is expected to produce sufficient funds to permit re tirement of the bonded indebtedness of the bridge by November 1, 1974, and to permit the performance of major maintenance tasks just prior to this date. This will leave the bridge in an excellent condition of repair at the time the toll collection is going to be terminated. Appendix H presents a bond amortization schedule illustrating the financial status of the bridge between now and November of 1974. Appendix J presents a tabulation of current and expected operating expenses and special maintenance costs for the Wasco County Toll Bridge. D. EVALUATION OF BRIDGE MAINTENANCE AND REPAIR COSTS In accordance with the requirements and estimates of the Washington State Highways Department, the Wasco County Toll Bridge will require yearly maintenance and repair expenditures, commencing after the retirement of bonded indebtedness, of approximately $41,000 in terms of year 1971 costs. These expenditures include allowances for major maintenance tasks such as painting of the bridge every ten years, for maintenance of the approach and deck roadways, and for all other miscellaneous expenditures, assuming the States of Washington and Oregon accept the full responsibility of the bridge. As stated earlier, this pre supposes that the bridge was placed in excellent condition satisfactory to both the Washington State Highways Department and the Oregon State High way Division, prior to their assuming any bridge responsibility. -35- WORK 8% DESTINATIONS OF VEHICLES INTERVIEWED DURING STUDY WASCO COUNTY TOLL BRIDGE PERCENTAGES OF TOTAL BRIDGE TRAFFIC TRIP PURPOSE TUDOR ENGINEERING COMPANY MARCH 1971 EXHIBIT 8 -3.6- It is estimated that the Wasco County Toll Bridge will be in a position to retire its bonded indebtedness on November 1, 1974. It is at this point that the possible takeover of the bridge by the States of Oregon and Washington would be appropriate. For informational purposes, the revenues of the Road Depart ments of both Wasco and Klickitat Counties are presented in Appendices E and F, respectively. E. EVALUATION OF BENEFITS TO THE STATE OF WASHINGTON On the basis of present development, certain benefits are en joyed by residents of the State of Washington and Klickitat County due to the presence of the Wasco County Toll Bridge, There are certain user cost savings for Washington drivers which can be attributed to the bridge. However, the situation is different from that experienced at the Umatilla Toll Bridge. The through inter state traffic which might use the bridge has the option of crossing either at the Hood River Bridge downstream or the Sam Hill Memorial Bridge upstream at no increase in distance or cost, except for the differential due to existing tolls. For the local traffic, which forms the major share of the present bridge usage, user costs have not been calculated but it is obvious that travel by alternative routes would involve many miles of additional distance. This traffic developed over the years because the bridge, and the ferry before it, were available. It is not likely that the development experienced in the bridge area would have occurred without the Wasco County Toll Bridge, or the ferry which preceeded it. Because of the location of the existing lumber and manufacturing developments in the southern portion of Klickitat County, particularly to the east of Bingen, at Goldendale, Klickitat, Lyle, and Wahkiacus; and the tax advantages available in those areas to workers attending these plants and living in that area, the presence of the Wasco County Toll Bridge can be looked upon as a benefit to the residents of the State of Washington, This is so because the bridge offers these workers a means of convenient access to shopping, recreation, commercial,and business facilities, all of an established level and proximity to be attractive to living in the subject area. While it is difficult to quantify the dollar benefits accruing to the State of Washington due solely to the presence of the bridge, it is recognized that a lack of the above-mentioned amenities could severely hamper the development of a pool of workers and, ultimately, the tax revenue base. Once it has been established that a pool of workers have been attracted to an area, an estimate can be made showing the -37- effects of those workers as to their contribution to benefits received by residents of the State, and the State and County governments. The County of Klickitat receives an advantage in that it is able to collect additional property taxes from the workers living within its boundaries. The property tax gain can be expected to more than off set the loss in sales taxes from Klickitat County residents shopping in Oregon, With respect to the advantages to the residents themselves, the private study previously referred to illustrated that a typical house hold realizes a savings of approximately $52 per month by being able to live on the Washington side of the Columbia, This saving, which could be attributed to the availability of the Wasco County Toll Bridge, could be applied to those residents living in the area of Klickitat County with easy access to the bridge, namely the southern portion of the County. The presence of the Wasco County Toll Bridge also enables the residents of The Dalles and Wasco County, Oregon, to utilize and bring tourist dollars to the various recreational facilities in the immediate Washington vicinity to the north, such as the Satus Pass ski area. Brooks State Park, the Old Fort Blockhouse, and the Maryhill Museum of Fine Arts. The Dalles Dam fishladder on the Washington side is a point of attraction during the fish migration season. The superior fishing qualities of Horsethief, Spearfish and other lakes on the Washington side induce many Oregon residents to purchase out-of-state licenses and try their luck on a regular basis. Results taken from a study with respect to tourism, performed by the Oregon State Highway Division for 1970, estimated that 38, 617 person-trips were made from, and presumably to, Oregon via the Wasco County Toll Bridge. Thus, the Bridge acts as a means of travel for recreation to be enjoyed by Washingtonians, Oregonians and tourists from other states. The County of Klickitat also realizes benefits because of the location of The Dalles general avaiation field at the Washington bridge head of the Wasco County Toll Bridge, F. PREDICTATED FUTURE GROWTH OF AREA On the basis of future proposed development, all of the above advantages to the State of Washington, Klickitat County, and their residents -38- FIGURE 5 EMPLOYMENT TRENDS AND FORECASTS KLICKITAT COUNTY 1969 1975 Industry Sector Workers Workers AGRICULTURE Agriculture 1, 202 1, 290 Forestry Fish 6 EXTRACTIVE & CONSTRUCTION Mining Construction 307 MANUFACTURING , 2 Meat Products'— 2 2 Plywood h Other Wood Products'./I 261 506 Logging/^ 393 400 Sawmills/LJl 587 608 Printing & Publishing/-?. 19 23 Chemicals 18 30 Stone Clay & Glass Products/-? 4 3 Nonferrous Metals/_1. , ^ 1, 337 Other Transportation Equipment/— 59 74 Other Manufacturing/.? 22 27 TRANSPORTATION COMMUNICATIONS & SERVICES Transportation Services 289 300 Communications 4 9 Utilities 20 31 TRADE Wholesale 494 491 Retail FINANCE, INSURANCE ^ REAL ESTATE Finance, Insurance & Real Estate 119 SERVICES St MISCELLANEOUS Services 303 GOVERNMENT Federal 761 823 State & Local TOTALS 4, 135 6, 689 l± Durable Goods IJl Nondurable Goods Source: Klickitat County Regional Planning Council, -39- will be magnified due to the anticipated increase in manufacturing growth, mostly in the southernmost portion of Klickitat County, should the projections of the Klickitat County Regional Planning Commission solidify. Figure 5 shows that 1365 manufacturing employees within the total County were employed in 1969, with 3010 manufacturing employees within the total County being projected for 1975, a 120 per cent increase. With this proposed influx of jobs will come housing increases and other service industries. The majority of this develop ment will probably take place in the southernmost portion of the County due to the proposed plants' need for available and economic electrical power from adjacent dams. The Klickitat Port District has recently invested $1, 000, 000 towards the construction of an industrial area and port facilities adjacent to the bridgehead, with the aid of Economic Development Administration funds, for the purpose of attracting manufacturing plants to the area. Dow Chemicals is only one such company that is interested in the Klickitat Port District's facilities. Since land is available in proximity to these industrial sites and because of the favorable living costs for the subject area, it is expected that the majority of new housing units following new industry will like wise be located in Klickitat County. For an economy such as exists in The Dalles area today, it is reasonable to assume that the existing established regional shopping center, professional services, business center, and agricultural services located in The Dalles will continue to offer amenities to those choosing to staff the proposed plants. Consequently, the bridge will play a predominant part in the region's economy in the near to inter mediate future, and will no doubt aid in the industrial expansion of Klickitat County. The Wasco County Toll Bridge acts as an integral part of the interstate traffic network linking Washington and Oregon. Goods pro duced in the immediate area can be transported via trucking more directly and easily. The Wasco County Toll Bridge does and will continue to play an important part in the regional growth of the mid-Columbia area by enhancing the mobility of people and goods throughout the area. -40- APPENDICES APPENDIX A LIST OF AGENCIES AND COMPANIES INTERVIEWED Agency or Company Location U & I Sugar Company Toppenish Tri-Cities Herald Pas CO and Hermiston State of Washington, Department of Revenue Pas CO and Olympia Columbia Center Kennewick Tri-Cities Chamber of Commerce Kennewick Benton County Road Department Prosser Benton County Assessor's Office Prosser Bentop County Public Utility District Kennewick Port of Umatilla Umatilla Umatilla Toll Bridge Umatilla Umatilla Electrical Cooperative As sociation Hermiston City of Hermiston, City Manager Hermiston Umatilla County Planning Department Pendleton Oregon State Game Commission Pendleton University of Oregon, Bureau of Governmental Research &: Service Eugene and Pendleton Umatilla County Assessor's Office Pendleton Umatilla County Road Department Pendleton Pendleton Chamber of Commerce Pendleton Pendleton Grain Growers Pendleton Oregon State Highway Division La Grande and Salem Port of Morrow County Boardman Oregon State Employment Department The Dalles and Salem Wasco County Toll Bridge The Dalles Wasco County Assessor The Dalles The Dalles Chamber of Commerce The Dalles Wasco County Road Department The Dalles Wasco County Clerk The Dalles Klickitat Port District Bingen Public Utility District Goldendale Klickitat Valley Bank Goldendale Klickitat County Auditor and Clerk Goldendale Klickitat County Regional Planning Council Goldendale Klickitat County Treasurer Goldendale Klickitat County Road Department Goldendale Klickitat County Assessor Goldendale State of Oregon Employment Division Salem -41- APPENDIX A (Continued) Agency or Company Location State of Oregon Executive Department, Program Planning Division Salem State of Washington Department of Commerce and Economic Development Olympia State of Washington Department of Revenue Olympia State of Washington Department of Employment Security Olympia State of Washington Department of Motor Vehicles Olympia State of Washington Department of Fish and Game Olympia State of Washington Department of Highways Olympbia and Yakima State of Washington Toll Bridge Authority Olympia Port of Hood River Hood River -42- APPENDIX A (Continued) N ^ •S • f I 11 I -I Ch I >Q 1. ij li) *0 ^ N 1^ 0 kv ?lil^ MtV)^ ckCh ^I •?! ^ QsQ ty ft) I fI Ih. ^Oi «ilW\ ^ ^ ^ K *Q :2! \t\|(y) SURVEY QUESTIONAIRE -43- APPENDIX B ROAD USER TIME AND DISTANCE COSTS Element Unit Unit Cost Gasoline gallon $ 0. 37 Oil quart $ 0. 60 Tires each $ 25. 00 (original set) Repairs vehicle mile $ 0.012 Depreciation vehicle mile $ 0. 02 Time car per hour $ 2. 00 Notes: Comfort and convenience and stop delays were not considered. Running speed assumed at 52 miles per hour. Composite truck and Bus Cost Multiplier assumed at 3, 5. Trucks amounted to 12 percent of total traffic. Source: AASHO "Road User Benefit Analysis for Highway Improve ments", I960. -44- APPENDIX C BENTON COUNTY ROAD DEPARTMENT ESTIMATED REVENUES 1971 Budget Carryover from Previous Year Budget $250,000. 00 State Collected Gas Tax 700,000.00 Federal Aid Secondary 140,000.00 Urban Arterial Board 83,900.00 County Road Levy 338,000.00 Fines &; Forfeitures 1,000.00 Bond Sales 412,000.00 In Lieu Tax 15,000.00 R eimbur s ibl e 60,000.00 Total Estimated Revenue $1,999,900.00 1. Total Number of Parcels 27,126 2. County Assessed Valuation (100% market value) $403, 459, 762 3. Population (1970) 66,359 4. Motor Vehicle Registration 41,048 -45- APPENDIX D UMATILLA COUNTY ROAD DEPARTMENT ESTIMATED REVENUES 1970 Budget Serial Road Levy $ 433, 824. GO In Lieu Tax 500. 00 Timber Cut Tax 175,500.00 Gas Tax Refund 7, 500. 00 Motor Vehicle Refund 545, 000. 00 Sale of Supplies 32, 000. 00 = Cash Deficit 47, 000. 00 Federal Aid Secondary 5,000.00 Total Estimated Revenues $1, 246, 324. 00 Fines and Forfeitures were anticipated, but not received. 1. Total Number of Parcels Approx. 25, 000 2. County Assessed Valuation (100% market value) $392, 740, 881 3. Population (1970) 44,923 4. Motor Vehicle Registration 36, 932 -46- APPENDIX E WASCO COUNTY ROAD DEPARTMENT ESTIMATED REVENUES 1970 Budget Beginning Balance $200, 000. 00 Interest Received 25, 000. 00 Supplies & Services Sold 12, 000. 00 Equipment Sold Miscellaneous Refunds 1,000.00 Gas Tax Refunds Street Assessments, Principal 6,000. 00 From State Motor Vehicle Fund 191,000.00 From Forest Reserve Rentals 547, 000. 00 From Public Land Sales 500. 00 From Flood Emergency Funds From Flood Control Leases 377. 00 State Matching Funds 5, 000. 00 From General Fund for Weed Control Foreman and Assistant 10,770.00 From General Fund for Civil Defense Chairman From General Fund for Planning Commission Total Estimated Revenue $999, 647. 00 1. Total Number of Parcels 17^ 728 2. County Assessed Valuation (100% market value) $213,932,231 3. Population (1970) 20, 133 4. Motor Vehicle Registration 16, 047 -47- APPENDIX F KLICKITAT COUNTY ROAD DEPARTMENT ESTIMATED REVENUES 1970 Budget Cash Balance Applied $167,419.76 Gas Tax: 1. County Apportionment 876,674.68 2. F. A. S. Apportionment 81,961.38 Road Levy 131, 480.00 Miscellaneous: 1. Fines & Forfeitures 692,47 2, Forest Funds 29,062.90 3. Current Expense Fund Loan Payment 10,000.00 4, Other 4, 838. 18 Reimbur sables; 1. Other Agencies & Funds 28,368.30 2. Equipment Rental & Revolving Fund 82, 613. 74 Total Estimated Revenue $1, 413, 111. 41 1. Total Number of Parcels Approx, 25,000 2. County Assessed Valuation (100% market value) $113, 157, 023 3. Population (1970) 11,959 4. Motor Vehicle Registration 9, 073 -48- UMATILLA TOLL BRIDGE BOND AMORTIZATION SCHEDULE In Units of $1000 Disposition of Revenues Status as of June 30 Net Reserve Funds Fiscal Regular Transfers Year Revenues Operating E)xtra- Interest to (+) or Bonds Bonds Sinking Insu Mainte Ending Expenses or dinary from (-) Re out Fund rance nance June Expenses Reserve deemed standing Fund Fund 30 Funds _ _ _ _ ^ I 1970 705 ______2633 322 50 103 vO 1971 850 117 92 119 -58 580 2053 204 50 163 I 1972 935 125 10 93 127 580 1473 141 50 353 1973 1030 135 10 67 138 680 793 89 50 543 1974 900- 120 635 34 -682 792 0 0 0 0 Notes: ^ Collection of tolls is expected to be terminated in April of 1974. > hd w d 1-4 X o WASCO COUNTY TOLL BRIDGE BOND AMORTIZATION SCHEDULE In Units of $1000 Disposition of Revenues Status as of June 30 Net Reserve Funds Fiscal Regular Transfers Y ear Revenues Operating Extra Interest to (+) or Bonds Bonds Sinking Insu Mainte Ending Expens es ordinary from (-) Re out Fund rance nance June Expens es Reserve deemed standing Fund Fund 30 Funds 1970 270 —. M 790 105 50 50 0 1971 310 28 14 50 100 1 99 69 100 690 69 1972 380 103 5 24 48 200 490 47 50 170 1973 380 107 5 17 51 200 290 28 50 240 1974 380 111 5 10 54 200 90 12 50 310 1975 120* 38 362 2 -372 90 0 0 0 0 Notes: -i' Collection of tolls is expected to be terminated on November 1, 1974. > D W o I—< X APPENDIX I UMATtLLA TOLL BRIDGE OPERATING EXPENSES Actual Costs Estimated Costs Item 1969/70 1970/71 Salaries and Wages $ 59,169 $ 63,200 Payroll Taxes 7, 867 8, 400 Maintenance Contract 600 600 Operating Supplies 5, 004 5, 500 Office Supplies 251 300 Telephone and Postage 587 600 Insurance 17, 966 18,000 Accounting and Auditing 530 600 Utilities 1, 086 1, 200 Surety Bonds 339 600 Engineering 5, 000 5, 000 Traffic Promotion 9, 723 10,000 Umatilla County Services 3, 000 Subtotal - Regular Operating Expenses $108,122 $117,000 Extraordinary Expenses: Design and Construction of Additional Navigation Lights and Maintenance Traveler Motorization,and Special Studies 90,000 Equipment and Contingency 2, 008 2, 000 Total Expenses $110,130 $209,000 -51- APPENDIX J WASCO COUNTY TOLL BRIDGE OPERATING EXPENSES Actual Costs Estimated Costs Item 1969/70 1970/71 Salaries and Wages $ 44,269 $ 49,000 Payroll Taxes 4, 607 5, 000 Maintenance and Repair 2, 335 2, 500 Operating Supplies 1, 680 2,000 Office Supplies 637 1, 000 Telephone and Postage 170 300 Insurance 13, 485 13, 500 Accounting and Auditing 1, 025 1, 200 Utilities 5, 483 6, 000 Bond Charges and Taxes 353 500 Engineering 5, 000 5, 000 Advertising and Public Relations 5, 244 6, 000 Was CO County Reimbursement 7, 000 7, 000 Subtotal - Regular Operating Expenses $ 91,288 $ 99,000 Extraordinary Expenses: Maintenance and Special Studies 65,000 Equipment and Contingency 4,_og^ Total Expenses $ 91,288 $ 168,000 -52-