Draft Purpose and Need Chapter Little Cottonwood Canyon Environmental Impact Statement Wasatch Boulevard to Alta Lead agency: Utah Department of Transportation May 4, 2020 This page is intentionally blank. Contents Chapter 1: Purpose and Need ................................................................................................................................ 1-3 1.1 Introduction ......................................................................................................................................... 1-3 1.1.1 Description of the Transportation Needs Assessment Study Area ....................................... 1-5 1.1.2 Background of the S.R. 210 Project ...................................................................................... 1-7 1.2 Summary of Purpose and Need ......................................................................................................... 1-9 1.2.1 Purpose of the Project ........................................................................................................... 1-9 1.2.2 Need for the Project ............................................................................................................. 1-10 1.3 Regional Transportation Planning .................................................................................................... 1-11 1.4 Need for the Project .......................................................................................................................... 1-13 1.4.1 Planning for Future Conditions ............................................................................................ 1-13 1.4.2 Importance of S.R. 210 in the Local and Regional Transportation Systems ....................... 1-16 1.4.3 Current and Future Transportation System Needs.............................................................. 1-25 1.5 Public and Agency Involvement in Developing the Purpose and Need ........................................... 1-44 1.6 References ........................................................................................................................................ 1-46 Tables Table 1.1-1. Cooperating and Participating Agencies for the Little Cottonwood Canyon EIS ............................... 1-4 Table 1.3-1. Planned and Funded Transportation Improvements in the 2019 to 2050 RTP in the Study Area ............................................................................................................................................... 1-12 Table 1.4-1. Projected Regional Population, Employment, and Household Growth ............................................ 1-14 Table 1.4-2. Roadway and Intersection Levels of Service in the PM Peak Hour under Existing (2015) Conditions and Future (2050) No-action Conditions ............................................................................... 1-26 Table 1.4-3. Comparison of Crash Rates for S.R. 210 from Fort Union Boulevard to S.R. 209 (2010– 2018) to the Statewide Averages for Arterial Roads (2011–2015) .......................................................... 1-28 Table 1.4-4. Days of High Traffic Volumes in Little Cottonwood Canyon by Year ............................................... 1-32 Table 1.4-5. Hazard Category as Defined by the Avalanche Hazard Index......................................................... 1-33 Table 1.4-6. Comparison of Crash Rates for Little Cottonwood Canyon Road to the Statewide Average for Rural Minor Arterial Roads (2010–2018) ................................................................................................. 1-38 Draft – May 4, 2020 Utah Department of Transportation i Figures Figure 1.1-1. Transportation Needs Assessment Study Area ................................................................................ 1-6 Figure 1.4-1. Future (2050) No-action Transportation Network ........................................................................... 1-15 Figure 1.4-2. Number of Current Travel Lanes on S.R. 210 ................................................................................ 1-17 Figure 1.4-3. Little Cottonwood Canyon Recreation Destinations ....................................................................... 1-20 Figure 1.4-4. Transit Routes and Park-and-Ride Lots .......................................................................................... 1-22 Figure 1.4-5. Bicycle Facilities .............................................................................................................................. 1-24 Figure 1.4-6. Level of Service ............................................................................................................................... 1-25 Figure 1.4-7. Levels of Service in the PM Peak Period under Existing (2015) and Future (2050) No-action Conditions on Wasatch Boulevard from Fort Union Boulevard to North Little Cottonwood Road and on North Little Cottonwood Road ..................................................................................................... 1-27 Figure 1.4-8. Traffic in Little Cottonwood Canyon in February 2017 .................................................................... 1-30 Figure 1.4-9. Traffic in Little Cottonwood Canyon in July 2017 ............................................................................ 1-30 Figure 1.4-10. Congestion in Little Cottonwood Canyon ...................................................................................... 1-31 Figure 1.4-11. Avalanche Paths in Little Cottonwood Canyon ............................................................................. 1-34 Figure 1.4-12. Avalanche at White Pine Chutes on March 14, 1998 ................................................................... 1-35 Figure 1.4-13. Number of Winter Closures and Total Closure Hours for Little Cottonwood Canyon Road (1999–2018) ............................................................................................................................................ 1-36 Figure 1.4-14. Traffic Stopped on Wasatch Boulevard from Avalanche Closure in Little Cottonwood Canyon .................................................................................................................................................... 1-37 Figure 1.4-15. Winter Roadside Parking in Little Cottonwood Canyon ................................................................ 1-39 Figure 1.4-16. Parking Area Occupancy on Presidents’ Day, February 20, 2012 ............................................... 1-40 Figure 1.4-17. Summer Roadside Parking at the White Pine Trailhead .............................................................. 1-41 Figure 1.4-18. Parking Area Occupancy on Labor Day, September 7, 2011 ....................................................... 1-42 Draft – May 4, 2020 ii Utah Department of Transportation Chapter 1: Purpose and Need 1.1 Introduction This Environmental Impact Statement (EIS) for the Little Cottonwood What is the lead agency for Canyon Project has been prepared according to the provisions of the the Little Cottonwood National Environmental Policy Act (NEPA) and other laws, regulations, Canyon EIS? and guidelines of the Federal Highway Administration (FHWA). This The Utah Department of document conforms to the requirements of the Utah Department of Transportation is the project Transportation (UDOT), the project sponsor and lead agency. sponsor and lead agency. FHWA has assigned its responsibilities under NEPA and other federal environmental laws to UDOT for highway projects in Utah, pursuant to 23 United States Code Section 327, in a Memorandum of Understanding (MOU) dated January 17, 2017. In accordance with the assignment MOU, UDOT is carrying out the environmental review process for the Little Cottonwood Canyon Project in lieu of FHWA and serves as the lead agency in the NEPA process. The assignment MOU does not change the roles and responsibilities of any other federal agency whose review or approval is required for the project. As part of the environmental review process, the lead agency is required What are cooperating and to identify and involve cooperating and participating agencies, develop participating agencies? coordination plans, provide opportunities for the public and participating agencies to be involved in defining the purpose and need statement and A cooperating agency is an determining the range of alternatives, and collaborate with cooperating agency, other than a lead agency, that has jurisdiction by law or and participating agencies to determine methodologies and the level of special expertise with respect to 1 detail for analyzing alternatives. The lead agency must also provide any environmental impact oversight with regard to managing the NEPA process and resolving involved in a proposed project or issues. project alternative. A state or local agency of similar qualifica- Table 1.1-1 lists the cooperating and participating agencies for the Little tions may, by agreement with the Cottonwood Canyon EIS. lead agency, become a cooper- ating agency (40 Code of Federal Regulations Section 1508.5). A participating agency is a federal, state, tribal, regional, or local government agency that might have an interest in the project. 1 These steps are required by 23 United States Code Section 139, which establishes an environmental review process that must be used when preparing an EIS for a highway or transit project. Draft – May 4, 2020 Utah Department of Transportation 1-3 Table 1.1-1. Cooperating and Participating Agencies for the Little Cottonwood Canyon