TRANSPORTATION
This transportation element of the Comprehensive Plan is a guide for the development of arterial and collector roads, mass transit systems, and airport facilities in Marion County.
The private automobile is now, and will continue to be, the most heavily used mode of travel in Marion County. No other mode can match it for convenience and flexibility. In addition to being a method of transportation, the automobile serves a recreational purpose; i.e., automobile touring or the"Sunday drive" is an important form of recreation for many families.
Even though the automobile is a prime cause of many of the problems besetting our cities--pollution, congestion, poor utilization of space--it has required the creation of a network of roads that permits beneficial intercommunication among all reaches of Marion County.
For more detailed road system planning than is included in this report, particularly in the small cities, the reader's attention is directed to the comprehensive plans for the applicable jurisdictions within Marion County. For example, the Salem Comprehensive Plan shows the existing and proposed arterial system. This plan is in accordance with the Salem Area Transportation Study, which also shows the collector system within the Salem Urbanized Area. Comprehensive Plans with elements on transportation are being developed by other cities in the County.
While it is not the purpose of this Plan to become involved in detailed physical design of streets, roads and highways, and other transportation facilities, care must be given to replacement and preservation of such natural and social amenities as trees, landscaping, and historical sites. Strong consideration should also be given to providing facilities for pedestrians and bicyclists. Cycling, especially, is an extremely fast-growing form of personal transportation and recreation. In 1971, the so-called "Bike Bill" was passed by the State Legislature. This bill provides that not less than 1% of the gas tax monies received each year shall be used for the construction of bicycle paths. Design methods which will prevent neighborhood disruption, provide access control to prevent improper land use, and preserve scenic beauty should be adhered to closely in roadway construction.
TRANSPORTATION GOALS
The close functional relationship between transportation and other elements of the Comprehensive Plan (and daily activities in the County areas) requires a careful consideration of the goals and objectives on which transportation planning and implementation is based. The Transportation goals of Marion County are:
a. Development of a transportation system for the safe, economical, reliable and efficient movement of persons and goods to meet the present and future needs.
b. Provision for a balanced approach to transportation system development, giving due consideration to all modes of travel.
c. Development of a transportation system consistent with area-wide goals and policies and the land use plans.
The following section presents a method of classifying roadways according to their function within a highway system. This method of classification has been used within this transportation plan element to describe the functional parts of the highway system in Marion County and to plan for future expansion and improvement of that system.
HIGHWAY CLASSIFICATIONS
Highway classifications used in this Plan generally conform to those used in the National Highway Functional Classification Manual published by the U.S. Department of Transportation. There are two main reasons for using the national classifications. One is to resolve the differences in the several different classification systems used by the County, State, City of Salem, and each smaller city within the County. Such words as "thoroughfare", "major thoroughfare", "state highway", "major arterial", "principal arterial", "arterial", "collector", "local street", and "road" are in use throughout the area to describe the various types of roadways with very little consistency of jargon among the various jurisdictions. The second reason is that for future funding of federal projects, the Federal Highway Administration will almost certainly insist upon a uniform classification system, which will undoubtedly follow the National Classification System. The new Functional Highway Classification revised in 1977 lists all designated interstate routes, principal arterials, minor arterials, major collectors, and minor collectors within Marion County.
Although the national classifications recognize two separate systems for "rural areas" and "urbanized areas", the differences between the systems are not of great significance in relation to this plan; also, the majority of the streets in the urbanized area (Salem) are not shown. Consequently, only the functional systems for rural areas are presented, as follows: 1
Rural Principal Arterial Road Systems
The rural principal arterial road system for the year 2000 will consist of a connected rural network of continuous routes having the following characteristics:
a. Serve projected corridor movements having trip length and travel density characteristics indicative of substantial statewide or interstate travel.
b. Serve all, or virtually all, year 2000 urban areas of 50,000 and over population and a large majority of those with population of 25,000 and over.
c. Provide an integrated network without stub connections except where unusual geographic or traffic flow conditions dictate otherwise (e.g., international boundary connections and connections to coastal cities).
The principal arterial system is divided into two categories:
a. The approximately 42 miles of Interstate 5 traversing the County from north to south; and
b. All non-interstate principal arterials (Highway 22 and 99E).
Rural Minor Arterial Road System
The rural minor arterial road system for the year 2000 should, in conjunction with the principal arterial system, form a rural network having the following characteristics:
a. Link cities and larger towns (and other traffic generators, such as major resort areas, that are capable of attracting travel over similarly long distances) and form an integrated network providing interstate and intercounty service.
b. Be spaced at such intervals, consistent with population density, so that all developed areas of the State are within a reasonable distance of an arterial highway.
c. Provide (because of the two characteristics defined immediately above) service to corridors with trip lengths and travel density greater than those predominantly served by rural collector or local systems. Minor arterials therefore constitute routes whose design should be expected to provide for relatively high overall travel speeds, with minimum interference to through movement.
Rural Collector Road System
The rural collector routes generally serve travel of primarily intracounty rather than statewide importance and constitute those routes on which (regardless of traffic volume) predominant travel distances are shorter than on arterial routes. Consequently, more moderate speeds may be typical, on the average.
In order to define more clearly the characteristics of rural collectors for this study, this system should be subclassified according to the following criteria:
Major Collector Roads: These routes should: (1) provide service to any County seat not on an arterial route, to the larger towns not directly served by the higher systems, and to other traffic generators of equivalent intra-county importance, such as consolidated schools, shipping points, etc.; (2) link these places with nearby larger towns or cities, or with routes of higher classification; and (3) serve the more important intra-county travel corridors.
Minor Collector Roads: These routes should (1) be spaced at intervals, consistent with population density, to collect traffic from local roads and bring all developed areas within a reasonable distance of a collector road; (2) provide service to the remaining small communities and (3) link the locally important traffic generators with their rural hinterland.
Rural Local Road System
The rural local road system should have the following characteristics: (1) serve primarily to provide access to adjacent land; and (2) provide service to travel over relatively short distances as compared to collectors or other higher systems. Local roads will, of course, constitute the rural mileage not classified as principal arterial, minor arterial road or collector road.
HIGHWAY SYSTEM PLAN
The plan for the future highway system of Marion County is shown on the General Land Use/Transportation Plan Map. It is based on State Highway Division Plans with input from the Marion County Department of Public Works. All roads which are listed as major collectors or larger, are eligible for Federal-Aid assistance. The Federal-Aid system is segmented as Federal-Aid Interstate (FAI), Federal-Aid Primary (FAP), Federal-Aid Urban (FAU), and Federal-Aid Secondary (FAS). The FAI routes comprise the major Interstate freeway system. The FAP routes comprise the major network of State highways. FAU routes are designated high volume streets within urban areas which are available for Federal assistance. The FAS system contains lesser State highways and main County roads. FAS (Federal-Aid Secondary) and FAU (Federal Aid Urban) monies are available to local governments (including Marion County) on the current matching ration of 88% federal, 6% county/city and 6% state.
TABLE NO. 2
SPECIFICATIONS FOR RURAL ROADS ADT*
*Average Daily Traffic
A setback is a requirement which restricts building within a specified distance of the centerline of a roadway. The purpose of establishing a setback requirement is to assure that additional right-of-way may be acquired without requiring removal of buildings. Setbacks in Marion County have been established as a part of the zoning code.
HIGHWAY SYSTEM IMPROVEMENTS
State Highway Department gas tax revenue, which is a major source of funds to maintain and improve state, County and city roadways, is dependent upon gas sales. Annual variations are irregular, depending to some extent on the health of the economy and the price of gasoline. From 1979 to 1980 annual revenues decreased about 7%. Current funding has not kept abreast of the current inflation rate. For this reason, there is very little new construction planned for State routes. Most of the monies received will be spent upgrading those facilities presently within the existing State right-of-way. This upgrading will include resurfacing existing pavement, constructing uphill passing lanes, intersection improvements and general maintenance. There is a current project to widen the Interstate 5 Freeway from the Hayesville Interchange to South Commercial. Other identified future improvements would be widening U.S. 99E from Hazelgreen Road to the north County line and widening Highway 22 from Joseph Street to Mehama. No commitments have been made toward these projects due to the reasons mentioned above.
On the local level, the easterly north-south section of the peripheral route around Salem, named Cordon Road, is completed. It links Hazelgreen Road at the north end with Lancaster Drive SE to the South. Right-of-way acquisitions will be necessary to extend the route to Boone Road, the desirable southern terminus. From this point, the belt line facility will continue west and be called Kuebler Boulevard, which is described more fully in the Salem Area Comprehensive Plan. Informal talks are underway to study preliminary engineering for connections between Cordon Road and Highway 22.
In the northern end of Marion County, Yergen Road will eventually travel in an east-west direction from approximately Aurora to the Hillsboro-Silverton Highway and the St. Paul area. Rights-of-way have been acquired and only the last segment of this project between French Prairie Road and the Hillsboro-Silverton Highways remains to be completed.
Chemawa Boulevard is a proposed urban arterial which will connect Hazelgreen Road and 99E to North River Road (Highway 219) partially by way of existing Chemawa Road, and partially by way of Lockhaven Drive.
From Hazelgreen Road and 99E, this corridor will extend to the east along Hazelgreen road and connect with Cordon Road. From North River Road, this corridor will be called Olson Street and extend west to Windsor Island Road. This project has been delayed due to FAU funding problems at the national level. The preliminary design is complete, the 80-foot right-of-way is acquired and the project could be undertaken on short notice.
The freeway concept of the proposed I-305 Interstate Freeway has been abandoned. Funds designated for this project will now go towards a 4-lane arterial within the I-305 right-of-way, along with various other needed street improvements throughout the city of Salem. Detailed information on projects located within the Salem Urban Growth Boundary is found in the Salem Area Comprehensive Plan.
There are numerous other improvements of a less significant nature throughout the County for both the minor arterial system and the collector system. The majority of these will consist of upgrading the facilities within the existing rights-of-way. There are also several other proposals of major improvements and new facilities within the Salem urbanized area. As these are generally within the corporate city limits of Salem, they are not covered in this plan.
An important issue relevant to rural Marion County minor roads is the existence of dedicated but unopened County roads. Many of these roads are remnants of old fruit farm subdivisions that have not been developed. Some of these dedicated roads are located on farmland, forest land or in areas where constructing a road would be inappropriate.
Often the developer or property owner wishing to open the road will do so only at minimum standards and then request the County to maintain it at County expense. Many of these roads either should not be opened or they should be developed to a minimum standard at the expense of benefitting property owners. The County is financially unable to assume responsibility for either maintaining or improving substandard roadways not now in the County road system.
PUBLIC TRANSIT
The subject of public transit is one which has received much national publicity in the recent past, and in many instances this mode of transportation has been promoted as the solution to many transportation problems caused by vehicular traffic. However, public transit is practical only in or between areas of high population density. Within most of the rural areas of Marion County, where population densities are low and distances are great, the private automobile (or truck) will continue to be the only practical means of conveying people (and goods) throughout the County.
Transportation, and mass transit in particular, are issues of regional importance. Therefore, it is necessary to look at the relationships to other areas beyond Marion County, particularly the Willamette Valley.
The State Department of Transportation through its Public Transit Division has analyzed the alternatives of intercity mass transit in the Valley.2
The significant conclusions are:
1. If the public transportation is to increase its desirability as a travel mode, it must develop into a well integrated system rather than a series of uncoordinated local and intercity operations. Integration of systems does not necessarily require a single operating agency, but it does require close working relationships between operators. The Department of Transportation has a definite role in coordination of services.
2. Although gasoline is plentiful today and perhaps for several decades to come, we are drawing down our reserves. The rising price of fuel and our dependence on foreign imports poses some danger to the country's economic health. Increasing the use of fuel-efficient modes of travel such as public transportation is to the nation's advantage. Rather than wait for energy-related problems to appear, the process of developing a network of public transportation and increasing usage of public transit should begin well in advance of the problems.
3. The greatest long-term return on investment will be gained by adding rail service in the Valley and providing feeder bus service to the rail network. The concept of a high-feeder service is especially appropriate for intercity travel.
Additional more definitive studies will be undertaken to get into the actual planning of such features as a rail rapid transit system with access to the small cities within the Willamette Valley corridor. Other substudies might consider special lanes and other service for buses, or the possibility of utilizing an entirely different type of system to travel the major corridor from Eugene to Portland.
One of the major goals for the transit system (and in fact the entire transportation system) is the integration of all modes of transportation. At present the various modes of transportation in the County are lacking in integration. Part of the reason for this is lack of passenger interaction between the various modes. For example, few people traveling by airplane seek to continue their travel by train. As the demand and use of public transit increases, the integration of the various modes will need to improve. Coordination of time schedules and routing are ways that this integration can be improved. Also, creation of multi-modal terminals at strategic locations is another method of integration.
Rail Transit
The State Department of Transportation completed its final report on the Willamette Valley Passenger Rail Study in February 1976. The report makes no recommendations on the future of rail service in the Valley and is informational only. The summary of findings indicates that a passenger rail system would not be feasible at least for the next decade. By 1990 or 2000, however, it may be feasible to develop a high speed rail system that would connect the larger cities in the Valley. Population densities and travel demands may be sufficient by then to warrant the large expenditure on such a system. The existing rail lines of Southern Pacific and Burlington Northern could be used to cross Marion County.
Another possible alternative would be a new line along the I-5 Freeway corridor. This line could extend from Eugene to Portland, and perhaps to Seattle. The system could well use new passenger train technological developments, such as the San Francisco Bay Area Rapid Transit system has demonstrated and experimented with, in which trains carry from 80 to 400 people at speeds in excess of 100 miles per hour. Such a rail system would be costly to build but no more expensive than adding an additional two, four or even more lanes to Interstate 5 through the same distance, especially when overall costs are taken into consideration. To expand the freeway would require not only a high initial cost, but highly increased maintenance costs in the future. In addition there is the cost to the community of rather substantial amounts of land taken out of productive farming, industrial, commercial, residential, or other land uses. A rapid rail system is a viable means of cutting down on air, noise, and visual pollution, as well as a more efficient means of utilizing natural resources such as fuels and metals. Financing this rail line could be achieved through the use of private monies with Federal, State and possibly county tax subsidies.
In addition to railway passenger service, trains are important transporters of commerce. An estimated 33,000,000 tons of freight are moved by rail each year in Marion County. Access to a railroad is an important element in the location of certain industries that move raw materials and finished products by train. Because it is approximately seven times more efficient to move material by rail than by trucks, the railroad will become an increasingly important mode of shipping. The encouragement of a viable rail system is certainly in the best interests of the economic and transportation needs of Marion County.
Bus Transit
On casual inspection of the existing transit system, it would appear that Marion County is reasonably well served by existing motorbus lines along its main arterials. However, the buses that run along 99E, Interstate 5, Highway 22 do so on schedules which are extremely inconvenient for the majority of the people living in these areas, providing as little as twice-a-day service, which, of course, is not sufficient to fully satisfy modern needs. Many people today demand instantaneous action: when they want to go to the store, they simply jump into a car and go. In order for the bus portion of mass transit to be a truly viable system in Marion County, even covering the routes proposed, schedules would have to be set up so they would provide at least hourly service at all times. This is not now economically feasible, nor will it be within the next 20 years. Accomplishing this would call for rather substantial subsidies and it is highly doubtful the voters of the area would care to finance this program. Consequently, it would appear that Marion County can look to only a marginal increase in the effectiveness of motorbus transport by the year 2000. Nevertheless, commuter services of some sort, even on a twice-daily basis, should be provided to all communities of 500 or more, to afford a means of transportation for those citizens who do not have automobiles. Specific proposals to achieve this are: summer service to Silver Creek Falls and year-round service to Scotts Mills and St. Paul. St. Paul should also be linked by bus to Newberg, in Yamhill County.
Bus service in the City of Salem is expected to improve markedly by the year 2000. It is hoped that a semi-automatic, customer activated, computerized system of "on call" buses can be in effect by then. In the process of updating, Salem's system should be expended with the population growth, to include a greater amount of the surrounding area. It is also anticipated that service to smaller cities around Salem will improve. Many commuters to Salem live in these cities such as Silverton, Mt. Angel, Aumsville and Turner. Scheduled summer service should be provided to the Silver Creek Falls recreation areas, augmenting the charter service now available.
Cities in the north corridor area are on two good highways and a rail route and are served with interstate bus service currently. These cities probably will not receive any other specialized treatment, but will benefit from any improvements the rail system and the two interstate bus carriers, Greyhound and Pacific Trailways, may institute.
An area of special concern in the future will be senior citizen developments. There are currently several of these in the County; one at Woodburn, one at Mt. Angel and several smaller ones in Salem, as well as two larger ones in Polk County. If the growth of this type of facility continues to follow national trends, by the year 2000 there will undoubtedly be several more large areas reserved for development of senior citizen dwelling complexes. Very frequently because of physical infirmity or just plain choice, these people do not have or wish to have automobiles. Consequently, they are dependent for their transportation upon public systems. At the present time, there is only very limited bus service provided for the Woodburn Senior Estates, Mt. Angel towers, etc. This service should be upgraded in the future, especially as many of the people living in these developments grow older, and are forced to give up their cars.
There are no specific capital improvement programs proposed for Marion County at this time except within the Salem urbanized areas, and there the capital improvement program becomes somewhat indefinite by the year 2000. Undoubtedly, Greyhound and Trailways both have some plans for the next few years, but their long range plans are dependent upon so many variables that they are virtually impossible to forecast. Hamman Stage Lines Company does not have any long range plans at this time. Hamman has for some time been operating on almost a day-to-day basis and it is possible that if the services of Hamman Lines are to be maintained or upgraded, some form of subsidy will have to be brought into effect.
In any case, the motorbus as we know it, must use the same highway system as cars and trucks. Thus, a balanced network of highways is vital to the function of any mode of surface transportation except trail.
Airports
Marion County is quite well served at present by several categories of air transportation, including emergency and recreational landing strips. Air freight is being handled sufficiently by public airports in all of Marion County. Of these, 13 are restricted use dirt strip, private airports, seven are heliports and the other two are paved and lighted public airports suitable for landing larger aircraft. McNary Field in Salem is classed as an air carrier airport, and as such is capable of handling commercial passenger aircraft commercial passenger aircraft such as the Boeing 737 jet.
The State Division of Aeronautics published the Oregon Aviation Systems, Technical Report in 1974. It analyzed present and future aviation facilities and needs throughout Oregon. There are no indicated needs or proposals for any new, major airports in Marion County. The State Aviation System Plan recommendations for airports in Marion County are limited to developing improved facilities at the existing McNary Field and Aurora State Airport.
Recommendations are made in the Airport Master Plan to improve McNary Field in Salem. Included will be lengthening and strengthening runways, additional lighting and navigational guides, and upgrading of the terminal buildings and taxiways.
A long range Master Plan for the Aurora State Airport was completed in 1976, by the State Aeronautics Division. The forecasted increase in annual aircraft operations is from 90,000 in 1975 to 387,400 in 1995.
Airport site development and operations compatibility are important land use and zoning issues. A public zone has been applied to the Aurora State Airport that limits uses to airport related operations including certain commercial and industrial activities.
Compatibility between the airport and land use adjacent to the airport is another concern. Residential developments and other noise sensitive uses have traditionally caused conflicts with established airport activities at most airports. Also, structures and uses can pose a hazard to aircraft. To avoid these problems an Airport Overlay Zone has been applied to control building heights and to limit certain incompatible uses. In addition, special regulations in the Zoning Ordinances require that noise impacts be considered before approving new uses within the 1995 NEF 30 area shown on the Aurora Airport Master Plan.
The following airport recommendations focus on small private use airstrips and helicopter pads. The majority of small private use airports are simple dirt strips that serve personal needs. Farmers and other rural businessman are finding aircraft beneficial to their activities and are seeking small airstrips located close to their operations. Agricultural spraying with aircraft is an example of a growing business in rural areas requiring additional airfields.
These small airports and private airstrips should not be expected to change, and additional small private airports will be scattered throughout the County. The location and use of these facilities will be reviewed on an individual basis as needed and land use compatibility is demonstrated.
Heliports presently are limited to the Capitol Mall, lumber companies and hospitals. Additional heliports should be built throughout the county, particularly at hospitals and near facilities providing medical treatment.
Transportation Disadvantaged
The Mid-Willamette Valley County of Governments completed a regional transportation plan for the transportation disadvantaged in January, 1980. Inventories of all existing and potential transportation resources are contained in the plan along with an assessment of how these resources can best be utilized.
The plan presents seven options available to Marion County to meet the transportation needs of the elderly, handicapped, young and poor. The options include various opportunities to cooperate and coordinate with Polk and Yamhill Counties in order to consolidate regional transportation efforts.
Marion County has adopted the Plan and is reviewing the plan to determine which of the options is most acceptable. Implementation of the program will depend on the availability of funding. Additional information about the transportation needs and the services which are available to the transportation disadvantaged can be found in the regional plan.
TRANSPORTATION POLICIES
1. Additional interchanges (access points) on Interstate 5 from the northern County line to the planned Chemawa Interchange, and from the existing Sunnyside Interchange to the southern County line shall be discouraged.
2. To ensure a minimization of interruption of traffic flow and to promote safety, the number of access points on collector and arterial roads shall be kept to a minimum. Wherever appropriate, roads of lower functional classification should provide the primary access to residential development.
3. Access to State and County Parks shall be provided by roads of major collector or higher functional classification.
4. Highway facilities should be developed in such a manner that valuable soil, timber, water, scenic, or cultural resources are not damaged or impaired.
5. New roads and highways should be designated to preserve and enhance natural and scenic resources.
6. Appropriate county roads should be designated as "scenic drives" and major development and billboards should be prohibited on such routes.
7. Encourage bus service to communities and areas presently not being served.
8. Airports and airstrips shall be located in areas that are safe for air operations and compatible with surrounding uses.
9. Residential development adjacent or near major highways should be designed to minimize adverse affects of traffic noise.
10. The development of unopened, dedicated public roads should be reviewed by Marion County for their consistency with the land use policies. When opening the road is appropriate, adequate roadway development standards shall be required.
11. Encourage the establishment of a cost-effective rail passenger service connecting the heavily populated urban centers of the Willamette Valley.
12. Encourage the use of underground pipelines that minimize the need for surface shipping and that are compatible with established land uses.
13. New transportation facilities of all types should use existing rights-of-way as much as possible to minimize disruption of existing land use.
14. Marion County will coordinate with other jurisdictions in the area to promote the development of integrated and improved transportation services for the transportation disadvantaged.
15. The adopted state master plans for public airports in the County are hereby adopted as part of the Marion County Comprehensive Plan.
16. The County shall adopt appropriate provisions to protect the public airports from incompatible structures and uses that shall be consistent with the Federal Aviation Administration guidelines.
17. Special review requirements shall be established to ensure that noise sensitive uses are not allowed in close proximity to public airports.
18. When partitioning, subdivision or a zoning permit allows more development to access on a County road, the owner shall be required, as a condition of approval, to dedicate the additional right-of-way necessary to meet County standards.
19. To minimize traffic hazards along rural roads, the Public Works Department or Road Department shall review all proposed driveways and accesses to County roads. Access locations shall be at the safest site possible and meet the minimum stopping sight distance requirements established by the Director of Public Works. Access shall be consolidated whenever feasible to keep to a minimum the number of access points.
20. New private roadways shall not be approved as access to more than 4 homesites except in planned unit developments (PUD's). When private roadways are approved as part of a subdivision or PUD, they shall be paved to county standards prior to recording the plat. Where private roadways are access to two or more partitioned homesites, the roadway shall be improved to County standard prior to issuance of a building permit for the dwelling in the approved partition. The maintenance of privately maintained access roads is neither the responsibility nor liability of the County.
21. Additional homesites shall not be approved on previously established private roads serving four or more dwellings unless no other means of providing access to the property is appropriate. Where such approvals are granted, the applicants may be required to sign an agreement to participate in any future road improvement districts.
22. Private streets in planned unit developments, and private roads on public streets in subdivisions that are privately maintained, shall be developed to County adopted standards and be maintained by the benefitting property owners. Maintenance agreements for the roadways shall be a mandatory condition of approval of such developments. Maintenance agreements shall be in the form of a Homeowners Association with covenants and restrictions dealing with road maintenance, or by means of deed restrictions to be included on the face of all articles of transfer for the development.
1 "Highway Functional Classification; Concepts, Criteria and Procedures", U.S. Department of Transportation, Federal Highway Administration, July, 1974.
2 Analysis of Alternatives for the Willamette Valley Experimental Transportation Project, Oregon Department of Transportation.