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Kittelson & Associates, Inc. TECHNICAL MEMORANDUM #3 Woodburn Southwest Subarea Transportation Plan No Build Conditions Memorandum (Subtask 3.2) September 18, 2024 Project# 29264 To: Chris Kerr, City of Woodburn Heidi Hinshaw, City of Woodburn From: Matt Hughart, AICP, McKenna Milacek, Russ Doubleday, AICP, and Julia Kuhn, PE The City’s Adopted Transportation System Plan (TSP) identified the transportation facilities needed to support a projected increase in households and jobs of approximately 2 – 3 percent per year between 2015 and 2040. Since the TSP was adopted, Woodburn has been experiencing significant and different economic development than was foreseen by the City, particularly in the southwest portion of the City. In addition, the City is in the process of amending its Urban Growth Boundary (UGB) to add the urban reserve area (URA) lands located to the east of I-5 and south of Parr Road. The enclosed memo provides an evaluation of the previously identified needs and prioritized investments included in the adopted TSP versus the vehicular capacity needs associated with the revised expectations of job and household growth between now and 2040. This memo also provides an evaluation of the vehicular capacity needs associated with the increased job and household growth plus the development of the lands within the URA lands. The findings in this memo build upon the needs and deficiencies identified in Technical Memorandum #3 for the existing conditions and will serve as the baseline for the alternatives evaluation to be developed as part of Technical Memorandum This memorandum focuses on the vehicular capacity needs at the following 15 locations based on the increased population and employment forecasts and compares those to the needs identified in the adopted TSP: ◼ OR 219 & Butteville Road ◼ OR 219 & Woodland Avenue ◼ OR 214 & I-5 SB Ramps ◼ OR 214 & I-5 NB Ramps ◼ OR 214 & Evergreen Road ◼ Evergreen Road & Stacy Allison Way ◼ Evergreen Road & Hayes Street ◼ Evergreen Road & Harvard Drive ◼ Hayes Street & Killian Spring Drive ◼ Parr Road & Settlemier Avenue ◼ Parr Road & Kirksey Street ◼ Parr Road & Stubb Road ◼ Parr Road & Butteville Road 851 SW 6th Avenue, Suite 600 Portland, OR 97204 P [PHONE REDACTED] ---PAGE BREAK--- September 2024 Page 2 Kittelson & Associates, Inc. ◼ Parr Road & Evergreen Road (future intersection) In addition to vehicular capacity needs and prioritized investments, Technical Memoranda #4 and #5 will also include information about multimodal needs and projects within the Southwest Subarea. Within the memo, intersection capacity needs at the 15 locations identified above are summarized for the following scenarios: ◼ Increased job and household growth by 2040 but no URA development ◼ Increased job and household growth by 2040 plus development of the URA lands Further details about each are presented herein. Adopted TSP Exhibit 1 illustrates the prioritized investments identified in the TSP within the Southwest Subarea Plan. As shown, of the 15 locations identified above, only those intersections along OR 214/OR219 have specific geometric and traffic control considerations in the adopted TSP. Per the TSP, all new roadway projects identified below are anticipated to be 2 – 3 vehicular lanes, depending on the functional classification. Exhibit 1. Roadway Plan Elements (Source: Woodburn TSP Figure ---PAGE BREAK--- September 2024 Page 3 Kittelson & Associates, Inc. Intersection Operations Mobility Targets As documented in Technical Memorandum the I-5 ramp terminal intersections are subject to a 0.85 volume-to-capacity mobility target whereas the remaining ODOT study intersections have a volume-to- capacity mobility target of 0.90 or 0.95 (depending on the roadway speed). City intersections are subject to the following mobility standards: ◼ Level of Service (LOS) for signalized intersections ◼ V/C ratio less than 1.00 regardless of LOS ◼ V/C ratio of less than 0.90 on the critical movement should be maintained, provided the queues on the critical approach can be appropriately accommodated. Development of Year 2040 Traffic Volumes The City provided ODOT’s Transportation Planning Analysis Unit (TPAU) with updated population and employment forecasts for the year 2040 reflective of the high levels of residential growth that the City has been and continues to experience as well as the updated job forecasts for the Southwest Area. The City also provided TPAU with estimates of future development of the URA lands to inform the UGB expansion scenario. These updated household and job forecasts were used to update the travel demand model for Woodburn. For the purposes of the year 2040 Baseline, the Adopted TSP projects plus the existing transportation facilities were all included in the updated travel demand model. Per ODOT’s Analysis Procedures Manual (APM), future year traffic volumes at the study intersections were developed using the methodology included in National Cooperative Highway Research Program Report 765: Analytical Travel Forecasting Approaches for Project-Level Planning and Design (2014). Figure 1 shows the year 2040 traffic volumes assuming the URA lands are not developed, and Figure 2 shows the year 2040 traffic volumes assuming the URA lands are developed. Evaluation of Study Intersections Assuming no URA Land Development Using the volumes shown in Figure 1, we evaluated the intersection operations for the year 2040 conditions. In comparing the operations to the applicable mobility targets, we note that the following intersections may need future consideration of a traffic signal/roundabout and/or turn lanes: ◼ Evergreen Road & Stacy Allison Way ◼ Evergreen Road & Hayes Street The analyses did not identify the need to widen any of the existing or planned facilities beyond the 2 – 3 lanes noted in the TSP. Most of the study intersections are expected to operate in accordance with the applicable mobility targets under predicted 2040 volumes assuming no URA land development. Evergreen Road at Stacy Allison Way and Evergreen Road at Hayes Street are expected to not meet the City’s mobility targets outlined previously. The Alternatives Evaluation will identify potential changes to these intersections to mitigate future operational issues. Appendix A includes the operations results for all study intersections. ---PAGE BREAK--- © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS H:\29\29264 - Woodburn Sub Area Plan\figs\Bubble Figures\29264_Figures.dwg Sep 27, 2024 - 10:50am - mstramler Layout Tab: Fig01-No Build Existing UGB 2040 No-Build Traffic Operations Woodburn, OR 1 Woodburn Sub Area Plan September 2024 Figure 1 OR 219 / Butteville Rd 2 OR 219 /Woodland Ave 3 OR 219 /SB 1-5 Ramps 4 OR 219 /NB 1-5 Ramps 5 OR 214/Evergreen Rd 6 Evergreen Rd/Stacy Allison Way 7 Evergreen Rd/Hayes St 8 Hayes St/Killian Springs Dr 9 Evergreen Rd/Harvard Dr 10 Parr Rd/Settlemier Ave 11 Parr Rd/Kirksey St 12 Parr Rd/Stubb Rd 13 Parr Rd/Butteville Rd CM = CRITICAL MOVEMENT (TWSC/AWSC) LOS = INTERSECTION LEVEL OF SERVICE (SIGNALIZED) / CRITICAL MOVEMENT LEVEL OF SERVICE (TWSC/AWSC) Del = INTERSECTION AVERAGE CONTROL DELAY (SIGNALIZED) / CRITICAL MOVEMENT CONTROL DELAY (TWSC/AWSC) V/C = CRITICAL VOLUME-TO-CAPACITY RATIO TWSC = TWO-WAY STOP CONTROL AWSC = ALL-WAY STOP CONTROL 1 2 3 4 5 6 7 9 8 10 12 13 11 5 219 214 Parr Rd Butteville Rd Stubb Rd Kirksey St Harvard Dr Evergreen Rd Hayes St Killian Springs Dr Stacy Allison Way Newberg Hwy Woodland Ave 99E 0 1 30 98 0 53 7 206 223 79 CM=SB LOS=C Del=16.0 V/C=0.34 17 384 3 1 417 97 187 1 30 1 1 2 CM=EB LOS=F Del=>50 V/C=0.80 CM=SB LOS=C Del=16.0 V/C=0.34 16 370 197 15 439 8 7 22 17 209 53 11 CM=WB LOS=F Del=>50 V/C=1.75 34 13 137 492 19 68 53 644 20 0 99 503 76 LOS=C Del=27.9 V/C=0.67 81 87 146 119 65 136 CM=WB LOS=B Del=13.1 V/C=0.33 79 175 49 8 188 119 111 156 108 61 158 4 CM=NB LOS=C Del=21.3 V/C=0.60 2 37 37 21 93 67 30 302 10 42 206 23 CM=SB LOS=C Del=22.7 V/C=0.50 29 32 146 40 26 89 CM=NB LOS=B Del=10.5 V/C=0.10 399 31 254 36 32 66 0 116 1039 257 0 330 804 19 LOS=C Del=32.1 V/C=0.81 [PHONE REDACTED] 157 1066 323 LOS=A Del=8.9 V/C=0.58 565 253 881 451 777 544 LOS=B Del=15.3 V/C=0.44 19 38 75 183 187 40 108 320 482 194 378 304 LOS=A Del=7.1 V/C=0.69 Parr Rd 14 Parr Rd/Evergreen Rd (Future) 14 1 61 200 52 59 10 9 3 0 125 5 46 CM=NB LOS=A Del=9.1 V/C=0.32 LEGEND Existing UGB ---PAGE BREAK--- September 2024 Page 5 Kittelson & Associates, Inc. Evaluation of Study Intersections Assuming URA Lands Develop Using the volumes shown in Figure 2, we evaluated the intersection operations for the year 2040 conditions. In comparing the operations to the applicable mobility targets, we note that the following intersections may need future consideration of a traffic signal/roundabout and/or turn lanes: ◼ Evergreen Road & Stacy Allison Way ◼ Evergreen Road & Hayes Street All of the study intersections are expected to operate in accordance with the applicable mobility targets under predicted 2040 volumes assuming no URA land development, with exception of Evergreen Road at Stacy Allison Way and Evergreen Road at Hayes Street. The deficiency at the latter was identified in the TSP. The Alternatives Evaluation will identify potential changes to these intersections to mitigate future operational issues. Appendix B includes the operations results for all study intersections. Even with the URA lands developed, the analyses did not identify the need to widen any of the existing or planned facilities beyond the 2 – 3 lanes noted in the TSP. ---PAGE BREAK--- © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2 © 2024 Microsoft Corporation © 2024 Maxar ©CN © 2024 Microsoft Corporation © 2024 Maxar ©C © 2024 Microsoft Corporation © 2024 Maxar ©CN © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS © 2024 Microsoft Corporation © 2024 Maxar ©CNES (2024) Distribution Airbus DS H:\29\29264 - Woodburn Sub Area Plan\figs\Bubble Figures\29264_Figures.dwg Sep 27, 2024 - 10:52am - mstramler Layout Tab: Fig02-No Build Expanded UGB 2040 No-Build Traffic Operations Woodburn, OR 2 Woodburn Sub Area Plan September 2024 Figure OR 219 / Butteville Rd OR 219 /Woodland Ave OR 219 /SB 1-5 Ramps OR 219 /NB 1-5 Ramps OR 214/Evergreen Rd Evergreen Rd/Stacy Allison Way Evergreen Rd/Hayes St Hayes St/Killian Springs Dr Evergreen Rd/Harvard Dr Parr Rd/Settlemier Ave Parr Rd/Kirksey St Parr Rd/Stubb Rd Parr Rd/Butteville Rd CM = CRITICAL MOVEMENT (TWSC/AWSC) LOS = INTERSECTION LEVEL OF SERVICE (SIGNALIZED) / CRITICAL MOVEMENT LEVEL OF SERVICE (TWSC/AWSC) Del = INTERSECTION AVERAGE CONTROL DELAY (SIGNALIZED) / CRITICAL MOVEMENT CONTROL DELAY (TWSC/AWSC) V/C = CRITICAL VOLUME-TO-CAPACITY RATIO TWSC = TWO-WAY STOP CONTROL AWSC = ALL-WAY STOP CONTROL 0 1 30 97 0 53 7 218 233 79 CM=SB LOS=C Del=16.5 V/C=0.35 19 386 3 1 386 90 180 1 32 1 1 2 CM=EB LOS=E Del=49.7 V/C=0.73 15 41 81 199 206 32 CM=SB LOS=B Del=12.9 V/C=0.15 16 373 178 12 416 7 7 20 18 215 52 11 CM=WB LOS=F Del=>50 V/C=1.64 35 11 130 475 18 72 53 725 22 0 94 528 65 LOS=C Del=28.5 V/C=0.68 81 89 195 107 78 236 CM=WB LOS=C Del=16.3 V/C=0.52 82 175 57 9 178 119 106 171 100 59 162 4 CM=NB LOS=C Del=21.6 V/C=0.61 2 37 38 20 91 64 29 290 10 41 195 21 CM=SB LOS=C Del=21.1 V/C=0.47 31 29 132 41 25 89 CM=NB LOS=B Del=10.4 V/C=0.09 399 29 247 37 30 68 0 119 1105 250 0 294 806 18 LOS=D Del=39.1 V/C=0.81 [PHONE REDACTED] 159 1069 321 LOS=A Del=8.8 V/C=0.62 567 253 939 451 779 545 LOS=B Del=15.3 V/C=0.44 130 407 486 213 432 302 LOS=A Del=7.2 V/C=0.69 1 2 3 4 5 6 7 8 9 10 11 12 13 14 Parr Rd/Evergreen Rd (Future) 1 74 235 46 68 10 10 2 1 161 2 44 CM=NB LOS=B Del=10.2 V/C=0.40 1 2 3 4 5 6 7 9 8 10 12 11 5 219 214 Parr Rd Butteville Rd Stubb Rd Kirksey St Harvard Dr Evergreen Rd Hayes St Killian Springs Dr Stacy Allison Way Newberg Hwy Woodland Ave 99E 13 Parr Rd 14 Settlemier Ave Southern Arterial LEGEND Existing UGB Expanded UGB ---PAGE BREAK--- September 2024 Page 7 Kittelson & Associates, Inc. Next Steps The information about intersection and street capacity needs associated with the two future baseline scenarios will be used to inform the development of street alternatives to be evaluated and discussed in Technical Memorandum ---PAGE BREAK--- Appendix A Existing UGB Future No-Build Traffic Operations ---PAGE BREAK--- Appendix B Expanded UGB Future No-Build Traffic Operations ---PAGE BREAK--- Appendix C Future Intersection Queues ---PAGE BREAK--- September 2024 Page 11 Kittelson & Associates, Inc. A queueing analysis was conducted at the signalized intersections within the study area. Table C-1 summarizes the percentile queues during the weekday PM peak hour in the future 2040 traffic conditions expected with and without the UGB expansion. Vehicle queue and storage are rounded to the nearest 25-feet. Storage are considered to be striped storage for the given movement. All 95th percentile queues during the PM peak hour are within the striped storage length, except for the eastbound through movement at the OR 214/Evergreen Road intersection. The eastbound queue on Evergreen Road at the OR 214 intersection exceeds the available distance between the Evergreen Road and Oregon Way intersections on OR 214. Table C-1: Weekday PM Peak Hour Queueing M a p I D Intersection Movement Existing UGB 95th Percentile Queue (feet) Expanded UGB 95th Percentile Queue (feet) Storage Length (feet) Adequate? 2 OR 219/Woodland Avenue EBL 50 50 225 Yes/Yes EBT 250 275 1,400 Yes/Yes EBR <25 <25 150 Yes/Yes WBL 200 125 225 Yes/Yes WBT 225 225 425 Yes/Yes WBR 25 <25 100 Yes/Yes NBL 25 25 100 Yes/Yes NBTR 125 100 250 Yes/Yes SBL 250 250 350 Yes/Yes 3 OR 214/I-5 Southbound Ramp EBT 250 250 950 Yes/Yes EBR <25 <25 250 Yes/Yes WBT <25 <25 600 Yes/Yes WBR <25 <25 525 Yes/Yes SBL 300 300 1,000 Yes/Yes SBR 425 425 1,000 Yes/Yes 4 OR 214/I-5 Northbound Ramp EBT <25 <25 600 Yes/Yes EBR <25 <25 525 Yes/Yes WBT 75 <25 700 Yes/Yes WBR <25 <25 400 Yes/Yes NBL 175 175 150 Yes/Yes NBR 275 275 275 Yes/Yes 5 OR 214/Evergreen Road EBL 50 50 175 Yes/Yes EBT 375 425 350 No /No EBR <25 <25 250 Yes/Yes WBL 300 250 375 Yes/Yes WBTR 250 250 500 Yes/Yes NBL 250 250 325 Yes/Yes NBR <25 <25 325 Yes/Yes ---PAGE BREAK--- September 2024 Page 12 Kittelson & Associates, Inc. M a p I D Intersection Movement Existing UGB 95th Percentile Queue (feet) Expanded UGB 95th Percentile Queue (feet) Storage Length (feet) Adequate? SBL 50 50 75 Yes/Yes SBT 50 50 375 Yes/Yes SBR <25 <25 75 Yes/Yes