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^ Umatilla and Wasco County Toll Bridges in the State of Washington

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^ Umatilla and Wasco County Toll Bridges in the State of Washington w PREPARED FOR WASCO COUNTY.OREGON AND UMATILLA COUNTY.OREGON REPORT ON .INFLUENCE OF ^ UMATILLA AND WASCO COUNTY TOLL BRIDGES IN THE STATE OF WASHINGTON ■ •-A v*V •••" rn • i'-?' ■ MARCH 1971 ^' 'ff *iVK^ iiV''"* ' .! '',■ ''>*..•■ ■ ' ■ ' '.vV.,.. ' ■ ■ '. ' '■■•^'rj,: t; ■ f WiS fHTiffl!! JUDOR ENGINEERING COMPANY • SAN FRANCISCO 'rpm ■ CONSULTING ENGINEERS a* HIST Facilities■ - Columbia River Bridge P 388.132 Umatilla Bridge I<i7 REPORT March 1971 1971 HIGHWAY' DEVr. LIBRARY WA STATE DOT LIBRARY 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.
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