y Significant Regionall FINAL REPORT

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1 R E G I O N A L LY CO gi on RR a ID l ly O Sig RS n i ST f i c a UD n t Y think Re PI A S MA G SO O C V E IA R N TIO M N EN O TS F FINAL REPORT January 2014

2 Final Report January 2014 Table of Contents Table of Contents... ii List of Tables... iv List of Figures... iv 1. Introduction Study Area Study Documentation Overview RSC Framework Data and Perspectives Used in Development of the RSC Previous Plans and Studies Best Practices Stakeholder Outreach RSC Priorities for Existing Conditions RSC Priorities for Future Conditions Jurisdiction Workshops Think Regionally Exercise Summary Think Locally Exercise State Highways and Routes TAC Workshop on Defining Criteria for the RSC Network Workshop Exercise 1 Should State Highways Serve as a Base for the RSC Network? Workshop Exercise 2 Identify State Routes for the RSC Network Workshop Exercise 3 RSC Design and Access Guidelines Workshop Exercise 4 Expanded RSC Network RSC Network Current State Highways Proposed New State Highways State Routes Regional Arterials ii

3 3.5 RSC Network Performance Average Trip Distance and Time Trips and Personal Miles Traveled, by Trip Purpose Trips by Mode Regional Arterial Guidelines Regional Arterials in Urban and Suburban Areas Roadway Capacity of Regional Arterials Interchange and Intersection Design Alternatives which Reduce Signal Phases Design Guidelines for Regional Arterials Regionally Significant Corridors Cost Estimation Route Type and Location Specific Project Factors Project Design and Delivery Implementation Issues RSC Development Strategies Championing the RSC Network Integrating the RSC into the RTP Process Options for a Jurisdiction to Sponsor and Advance an RSC Element into the LRTP Role of Municipal General Plans and the County s Comprehensive Plan Regional Policies Responsibilities for Studies, Clearances, Design, Right-of-Way, and Construction Responsibilities for Operations and Maintenance Regional Cost Sharing Responsibility for Advance Planning State Highways Route Transfers RTA Role Summary RSC Network Funding iii

4 List of Tables Table 1 Summary of Studies and Plans... 6 Table 2 - References for Best Practices to Plan and Manage RSCs Table 3- Jurisdiction Workshop Schedule Table 4 - Summary of Priority Rankings for Stakeholders and Jurisdiction Representatives Table 5 - Regional Arterials included in the RSC Network Table 6 - Proposed Regional Arterials Table 7 - Average Trip Times and Distances, by Trip Purpose Table RSC Network Modeling Results Table 9 - Trips by Mode Table 10 - Regional Arterial Attributes by Context Table 11 - Intersection Capacity Table 12 - Design Guidelines Table 13 - Assumptions for Capacity Calculations Table 14 - Key Attributes by Route Type for Cost Analysis Table 15 - Adjustment Factors Table 16 Example Project Cost Estimates List of Figures Figure 1 - RSC Study Area... 3 Figure 2 - RSC Framework Process... 4 Figure 3 Survey Question Figure 4 - Priority Rankings for the RSC Network as They Relate to Existing Conditions Figure 5 Survey Question Figure 6 - Priority Rankings for the RSC Network as They Relate to Future Conditions Figure 7 - State Highway and State Route Systems Figure 8 - Recommended RSC Network Figure 9 Four-Lane Urban Regional Arterial (subject to further refinement) Figure 10 - Six-Lane Urban Regional Arterial (Subject to further refinement) Figure 11 Four-Lane Suburban Regional Arterial (subject to further refinement) Figure 12 - Six-Lane Suburban Regional Arterial (subject to further refinement) Figure 13 Intermountain West Corridor Options Figure 14 - RSC Implementation Flow Chart iv

5 1. Introduction The Regionally Significant Corridors (RSC) Study is a forward-looking technical assessment of existing, planned, and proposed major transportation corridors in and around the Pima Association of Governments (PAG) region that achieve broad regional objectives, including the following: Improve access to employment and commercial centers to promote economic competitiveness throughout the region Improve access to residential areas to improve commuter travel time Improve mobility for cross-town travel Increase connections between roadways, transit, and rail centers to improve mobility of people and goods Reduce congestion and travel time on major roadways and interstates Continue to enhance and expand transit operations and facilities throughout the region to provide greater mobility choices Continue to enhance and expand bicycle and pedestrian facilities throughout the region to provide greater mobility choices Minimize impacts to environmentally sensitive areas (riparian, drainage, cultural, hazardous materials, etc.) Reduce air pollution Decrease fuel costs and other vehicle operating costs The resulting RSC network of major routes transcends the time horizons and population forecasts of the 2040 RTP. The RSC network is multijurisdictional because there are routes interconnecting all of the PAG jurisdictions, and some of the routes are already designated as state highways and state routes. Clearly, the mobility, connectivity, safety, and economic benefits derived from the network will be cast broadly across the entire region. An important focus of the RSC Study is to functionally fill a gap between regionally significant limited access freeways and local arterials. The RSC network may include state highways, state routes, major county roads, or major municipal arterials. Development of the RSC network will take into consideration planned and programmed projects such as I-11 and Intermountain West Corridor, the Aerospace Sonoran Corridor, and other projects included in long-range plans and five-year RSC Network Benefits: Mobility Connectivity Safety Economic Competiveness program. Elements of the RSC network may be retrofits and upgrades to existing corridors, corridor extensions, or entirely new routes. 1

6 RSC network is intended as input to the PAG regional transportation planning process. The RSC network is intended as input to the PAG Regional Transportation Plan (RTP) process, whereby individual routes in the RSC network could become part of the RTP and be programmed as projects to advance relative to available funding and regional priorities. RSC-related projects would be strategically implemented according to PAG policies and procedures, with strict oversight, public involvement, and a commitment to fiscal stewardship. A goal of the RSC Study was to receive broad support by PAG member jurisdictions. To accomplish this, the RSC network was developed in close consultation with a Technical Advisory Committee (TAC) consisting of PAG member jurisdictions and key regional stakeholders. 1.1 Study Area The study area is located in eastern Pima County and includes the PAG planning region and the PAG member jurisdictions of Tucson, South Tucson, Marana, Oro Valley, Sahuarita, Pima County, the Tohono O odham Nation, and the Pascua Yaqui Tribe. Since this RSC Study addresses connectivity to regional and statewide destinations, the study area includes parts of Pinal, Santa Cruz, and Cochise counties. Figure 1 on the following page illustrates the study area. 1.2 Study Documentation Overview The RSC Study was documented in three working papers, as described below. 1. Working Paper No. 1 Review of Previous Plans, Studies, and Best Practices Working Paper No. 1 documents a limited review of relevant plans, studies, and best practices relating to regionally significant multi-modal transportation services and infrastructure. The Working Paper is organized by; a summary of previous plans and studies, a summary of national best practices, financial considerations, candidate corridors, and ADOT route transfer procedures. 2. Working Paper No. 2 Stakeholder Input and Regionally Significant Corridors Evaluation Process Working Paper No. 2 documents input received from the Technical Advisory Committee (TAC) and regional transportation stakeholders on the evaluation framework for developing a network of regionally significant corridors in the PAG region. The Working Paper is organized by stakeholder and TAC outreach, and jurisdictional workshops. This Working Paper concludes with the RSC evaluation framework that was developed based on the input received from these groups. This framework will serve as a foundation for developing and evaluating the RSC network. 3. Working Paper No. 3 Regionally Significant Evaluation, Recommendations, and Implementation Strategies The focus of Working Paper No. 3 is to define the RSC network based on input from the TAC, evaluate the RSC network, develop functional classification criteria, including design criteria and cross sections, and develop a funding and financing plan for RSC project development. The Final Report compiles and summarizes the information analyzed in the working papers. 2

7 Figure 1 - RSC Study Area 3

8 1.3 RSC Framework The 5-step framework that was used to develop the RSC network is shown in Figure 2. Step 1 - Data and Perspectives Research was performed on previous plans, studies, and best practices. Data were collected from workshops and surveys, the TAC, and travel demand models. Data and perspectives were documented in Working Paper No. 1 (Review of Previous Plans, Studies, and Best Practices) and Working Paper No. 2 (Stakeholder Input and Regionally Significant Corridors Evaluation Process). Step 2 - RSC Screening Based on input from Step 1, a candidate RSC routes were identified and screened to achieve regional priorities and TAC perspectives. The screening process used was documented Working Paper No. 2. Step 3 - Functional RSC Networks Design guidelines for RSC network elements and a functional RSC network was developed to address various emphasis areas such as freight, congestion relief, service to employment centers, and others. The resulting RSC network was presented in Working Paper No. 3 (Regionally Significant Corridors Evaluation, Recommendations, and Implementation Strategies). Step 4 - Performance Assessments Assessments were conducted to analyze performance using the PAG 2040 travel demand model. The resulting performance measures are presented in Working Paper No. 3. Step 5 - Recommendations Steps 1 through 4 were used to develop recommendations for the RSC network based on TAC perspectives, opportunities, constraints, costs, responsibilities, and priorities. Recommendations are presented in this report. Figure 2 - RSC Framework Process 4

9 2. Data and Perspectives Used in Development of the RSC This chapter summarizes input to the development of the RSC network. Input included a review of previous plans and studies, best practices, stakeholder surveys and workshops, and TAC perspectives. 2.1 Previous Plans and Studies Previous statewide and regional plans and studies that impact the PAG region were reviewed. A focus of this review was to document operational and design criteria used to functionally define RSCs and to identify existing, planned, and proposed corridors that could become candidate RSCs. These studies are summarized in Table 1. A more detailed description of the studies can be found in Working Paper No. 1. 5

10 Table 1 Summary of Studies and Plans Name of Study Date Prepared by/for Summary Regionally Significant Route (RSR) Study May 2003 Entranco for the Pima Association of Governments The purpose of this study was to recommend and apply criteria for defining a new roadway classification system of RSRs in the PAG planning area. The study identified the following criteria for evaluating RSRs. Access management potential Regional employment and economic linkages Linkages crossing manmade or natural barriers Average daily traffic demand (future unconstrained) Mass transit or multimodal emphasis Significant geographic linkages to destinations outside of the region Regional network connectivity Commuter route emphasis Southeast Area Arterial Study State Transportation System Mobility and Regional Circulation Needs Feasibility Study (Loop Road Study) January 2006 Kimley-Horn and Associates for the Pima Association of Governments 2006 Kimley-Horn and Associates for the Pima Association of Governments The purpose of this study was to recommend a Major Streets and Routes Plan to meet future arterial-level transportation needs within the study area defined by I- 10 on the north and east, I-19 on the west, and the Santa Rita Mountains on the south. This study recommended approximately 190 miles of transportation corridors comprised of 20 miles of access controlled roadways (enhanced parkways or freeways), 48 miles of limited access controlled roadways (parkways), and 122 miles of arterial roadways. The purpose of this study was to evaluate the need for, and feasibility of, a system of high capacity, limited, controlled, and reduced access roadways in the PAG region to meeting travel demand beyond the 2030 Regional Transportation Plan (RTP). The study found that there is a need for two freeway facilities; a Western Freeway Loop and a Southern Freeway Loop. Other facilities were identified as needed parkway facilities: Houghton/Golf Links Parkway Kolb/Orange Grove Parkway River/Alvernon/Swan Parkway La Cholla Corridor Parkway Barraza-Aviation Parkway 6

11 Table 1 Summary of Plans and Studies, Continued Name of Study Date Prepared by/for Summary Pima County Southwest Infrastructure Plan Southern Pinal / Northern Pima Corridors Definition Study Regionally Significant Routes for Safety and Mobility November 2007 April 2008 December 2008 Stantec and Curtis Lueck & Associates for Pima County Kimley-Horn and Associates for the Arizona Department of Transportation Lima and Associations, Kittleson and Associates, and Kimley-Horn and Associates for Pinal County The southwest area of Pima County has been identified as a growth area, and is bounded by Tucson Mountain Park to the north, Mission Road to the east, Tohono O odham Nation-San Xavier District and Pascua Yaqui Pueblo to the south, and Sandario Road to the west. This study quantified the nature, phasing, financial impacts, and funding possibilities for flood control, parks and recreation, transportation, wastewater, and other improvements necessary to service future growth in the southwestern area. To accommodate the expected growth, infrastructure needs were studied and itemized as to their extent and probable cost. The purpose of this study was to determine the need for and feasibility of new high-capacity transportation corridors in Southern Pinal County and Northern Pima County. The study recommendations identified broad corridor definitions for potential new high-capacity facilities. Based on the assessment of needs and feasibility criteria, the following six corridors were identified in the southern Pinal / northern Pima area: North-South Corridor Florence / Red Rock / Avra Valley Corridor Western I-10 Parallel Corridor Oracle Junction to Florence (SR 79) Corridor SR 77 Reliever Route Oro Valley / Marana Corridor The purpose of this study was to provide a guide for the County and other stakeholders to implement and fund regionally significant routes in Pima County. 7

12 Table 1 Summary of Plans and Studies, Continued Name of Study Date Prepared by/for Summary Statewide Transportation Planning Framework (Building a Quality Arizona) 2040 Regional Transportation Plan (RTP) 2010 AECOM for ADOT Multimodal Planning Division Adopted July 1, 2010; Update Adopted March 29, 2012 Pima Association of Governments The 2010 Statewide Transportation Planning Framework was a statewide study focusing on not only transportation, but also sustainability, Smart Growth, the environment, economic development, and safety and security. It was the first effort by ADOT Multimodal Planning Division (MPD) to establish a long-range (forty-year) vision for transportation in Arizona. The purpose of the RTP is to address transportation needs in the Pima Association of Governments (PAG) region. The RTP identifies eight regional corridors, which are anticipated to provide high capacity vehicular travel throughout the region. These eight corridors are: I-10 East Corridor widen to 10 lanes from I-19 to east Pima County line I-10 West Corridor widen to 8 lanes from I-19 to north Pima County line I-19 Corridor widen to 6-8 lanes from I-10 to southern Pima County line SR 210 Barraza-Aviation Extension extend parkway to I-10 from Palo Verde Road and widen to 6 lanes SR 77 Oracle Road Corridor widen to 6-8 lanes from Miracle Mile to Pima County line SR 86/Ajo Way Corridor widen to a 4-6 lane parkway from Three Points to I-10 Valencia Corridor widen to a 4-8 lane parkway from Ajo Way to Old Spanish Trail Sahuarita Road Corridor widen to a 4-6 lane divided arterial from La Canada Drive to SR 83 Improvements to the transit and rail network in the PAG region consists of new Bus Rapid Transit routes, circulator routes, express bus routes, the Modern Streetcar, commuter/intercity rail, and new rail lines. Other RTP improvements include bicycle and pedestrian infrastructure projects and the identification of wildlife crossing areas. 8

13 Table 1 Summary of Plans and Studies, Continued Name of Study Date Prepared by/for Summary ADOT Passenger Rail Corridor Study, Tucson to Phoenix Sonoran Desert Conservation Plan and related environmental conservation plans Intermountain West Corridor in Pima County A Preliminary GIS- Based Roadway Alignment and Impact Study Currently in progress to be completed in 2014 Currently in progress June 21, 2013 Parsons Brinckerhoff, URS, HDR Engineering, Inc., AECOM, and Jacobs for ADOT Multimodal Planning Division This Study is currently underway and is evaluating environmental considerations, multimodal connections at stops and termini, and corridor alternatives, including a cost-benefit analysis. Pima County The Sonoran Desert Conservation Plan (SDCP) was initiated in 1998 with the goal of creating a conservation plan based on biology and science-based planning. The SDCP is continuously implemented, guiding land use decisions in the County and acquiring land for conservation. The SDCP was adopted in 2001 and contains maps and development guidelines for impacts to conservation lands, including removing, restoring, and enhancing wildlife linkages where physical barriers exist that have isolated major conservation areas. The SDCP is continuously implemented by Pima County to guide land use decisions in and acquiring land for conservation. Other related plans include the City of Tucson Avra Valley Habitat Conservation Plan and Town of Marana Habitat Conservation Plan. Pima County Department of Transportation The purpose of this alignment study and impact report is to develop and analyze an alternative roadway alignment for a theoretical new interstate route through Avra Valley that could connect to Interstate 10 in Pinal County and to Interstate 19 south of Tucson. 9

14 2.2 Best Practices Research techniques and processes used by jurisdictions across the country to plan and manage RSC networks were reviewed. Key references are summarized in Table 2. A more detailed description of the best practices can be found in Working Paper No. 1. Table 2 - References for Best Practices to Plan and Manage RSCs Topic Selection of Regionally Significant Corridors Access Management and Functional Classification Contra Costa County, California Sources Reviewed North Front Range Metropolitan Planning Organization, Colorado Regionally Significant Routes for Safety and Mobility, Pinal County, Arizona Public Road Standards, County of San Diego Department of Public Works Regionally Significant Routes for Safety and Mobility, Pinal County, Arizona Design Manual, Washington State Department of Transportation State Highway Access Management Manual, Ohio Department of Transportation Clark County Code, Clark County, Washington NCHRP Synthesis 404, State of the Practice in Highway Access Management, FHWA Access Management System and Standards, Nevada Department of Transportation 2.3 Stakeholder Outreach A web-based survey was developed and distributed online to employers and large organizations throughout the PAG region. This survey was non-scientific and gathered the perspectives of the employers and organizations that rely on the existing transportation system in the region for employees, customers and clients, and shipments (the survey was not widely distributed and reflects only the perspectives of major employers). Cooperation was received from the Tucson Regional Economic Opportunities (TREO) to develop a list of stakeholders to which the survey was distributed. TREO sent out 65 s to their member organizations with a link to the online survey. An additional 42 s were sent out to school districts, chambers of commerce, major employers, and community organizations that are not TREO organizations. Surveys were received from the following organizations. Living Streets Alliance Cushman & Wakefield PICOR Commercial Real Estate Greater Oro Valley Chamber of Commerce Department of Homeland Security 10

15 Tucson Metro Chamber Imagine Greater Tucson Union Pacific Railroad The survey consisted of 18 questions. Questions 1 through 10 related to information about the survey respondent such as number of employees, location, type of business, and transport modes. This information was requested to obtain an understanding of how the employers and organizations throughout the region use the transportation system and what could be improved upon. Other questions explored the use and perceptions of alternative mode transportation services such as the Modern Streetcar and a passenger rail system between Tucson and Phoenix. The full survey and survey responses were documented in Working Paper no. 2. Responses to two of the questions regarding priorities for the RSC network (Questions 11 and 13) are discussed below RSC Priorities for Existing Conditions Survey Question 11 asked respondents to rank potential priorities for the RSC network as they relate to existing daily operations of the business or organization, or to the needs of staff. The question and response choices are shown in Figure The following are potential priorities for the RSC network. Please rank them as they relate to the EXISTING daily operations of your business or organization, or to the needs of your staff. Improve access to employment and commercial centers to promote economic competitiveness Improve access to residential areas to improve commuter travel time Improve mobility for cross-town travel Increase connections with transit, air, and rail centers to improve mobility of people and goods Reduce congestion and travel time on major roadways and interstates Enhance and expand transit operations and facilities throughout the region to provide greater m obility choices Enhance and expand bicycle and pedestrian facilities throughout the region to provide greater m obility choices Minimize impacts to environmentally sensitive areas (riparian, drainage, cultural, hazardous mat erials, etc.) Reduce air pollution Decrease fuel costs and other vehicle operating costs Figure 3 Survey Question 11 The results of the online survey showed that most respondents thought that improve mobility for crosstown travel was the most important for existing conditions. A very close second was improve access to employment and commercial centers. Increase connections with transit, air, and rail was ranked third. It was noted by respondents that the other items on the list (e.g. reduce air pollution, minimize impacts to the environment, and reduce fuel and other vehicle costs) were not less important, but rather that they would be achieved as a result of addressing these top priorities. The survey responses are shown graphically in Figure 4. 11

16 Figure 4 - Priority Rankings for the RSC Network as They Relate to Existing Conditions RSC Priorities for Future Conditions Survey question 13 asked respondents to rank priorities for the RSC network as they relate to future operations of their business or organization. The question and response choices are shown in Figure 5. Responses are shown graphically in Figure 6. 12

17 13. The PAG region will continue to grow and the RSC network needs to accommodate that growth. As it relates to the future operations of your business or organization, please rank the following RSC priorities based on what you think will be needed to accommodate future conditions, when population doubles to about 2 million, in the PAG region (assuming management of water resources permit this growth). Improve access to employment and commercial centers to promote economic competitiveness Improve access to residential areas to improve commuter travel time Improve mobility for cross-town travel Increase connections with transit, air, and rail centers to improve mobility of people and goods Reduce congestion and travel time on major roadways and interstates Enhance and expand transit operations and facilities throughout the region to provide greater mobility choices Enhance and expand bicycle and pedestrian facilities throughout the region to provide greater mobility choices Minimize impacts to environmentally sensitive areas (riparian, drainage, cultural, hazardous materials, etc.) Reduce air pollution Decrease fuel costs and other vehicle operating costs Figure 5 Survey Question 13 13

18 Figure 6 - Priority Rankings for the RSC Network as They Relate to Future Conditions Interestingly, the priorities changed slightly and improve access to employment and commercial centers became the top priority and improve mobility for cross-town travel became the second priority. Increased connections between different modes remained a third priority between the existing and future conditions. 2.4 Jurisdiction Workshops Jurisdiction workshops were conducted to obtain jurisdictional perspectives on a framework for defining a network of regionally significant corridors within the study area, and to provide input on RSC priorities. Workshops were offered to TAC members representing nine agencies, and eight workshops were conducted. Table 3 summarizes the jurisdictions that participated in the workshops and when they were held. 14

19 Table 3- Jurisdiction Workshop Schedule Agency/Jurisdiction Workshop Date ADOT Tucson District October 19, 2012 (discussion only) Oro Valley October 22, 2012 Pima County October 22, 2012 Sahuarita October 23, 2012 Marana October 23, 2012 Tucson October 24, 2012 Tohono O odham Nation October 25, 2012 PAG November 13, 2012 The workshops, with the exception of the ADOT, were organized into three exercises, Think Regionally, Think Locally, and a discussion on state highways and routes. The following are overarching comments heard at the majority of the workshops. Many of the same comments were heard in each of the workshops. The purpose of the discussion only session with ADOT was to be able to respond to ADOT-related questions that arose during the other jurisdiction workshops Think Regionally Exercise Summary Workshop participants reviewed and ranked ten regional priorities discussed in Section Their top three most important priorities were: = Improve access to employment and commercial centers to promote economic competitiveness = Enhance and expand transit operations and facilities throughout the region to provide greater mobility choices = Improve access to residential areas to improve commuter travel time Agencies and the stakeholders had different top priorities, but thought improving access to employment and commercial areas was important. This was the top priority for agencies and a close second priority for stakeholders. However, stakeholders felt it was more important to have cross-town mobility as a priority. This priority was ranked fourth by the agencies. The agency representatives also felt that addressing their top three priorities would achieve the other priorities such as reduced air pollution, minimize impacts to the environment, and reduce fuel and other vehicle costs. A summary of the priority rankings for both jurisdiction representatives and stakeholder representatives is summarized in Table 4. 15

20 Table 4 - Summary of Priority Rankings for Stakeholders and Jurisdiction Representatives Priority Improve access to employment and commercial centers to promote economic competitiveness Increase connections with transit, air, and rail centers to improve mobility of people and goods Rank 1 2 Improve mobility for cross-town travel 3 Improve access to residential areas to improve commuter travel time 4 Reduce congestion and travel time on major roadways and interstates 5 Enhance and expand transit operations and facilities throughout the region to provide greater mobility choices Enhance and expand bicycle and pedestrian facilities throughout the region to provide greater mobility choices 6 7 Decrease fuel costs and other vehicle operating costs 8 Reduce air pollution 9 Minimize impacts to environmentally sensitive areas (riparian, drainage, cultural, hazardous materials, etc.) 10 16

21 Jurisdiction representatives were asked to think beyond the boundaries of their jurisdictions and how they connect to the region as a whole. The following are key destinations that were identified during the workshops. Key regional destinations were located in the greater Tucson metro area. The Tohono O odham Nation identified destinations inside of the San Xavier District and Sells. Key regional employment destinations included downtown Tucson, Tucson International Airport (TIA) area, University of Arizona, and other employment centers. Key destinations outside of the region included points along I-10, I-19, SR-77, SR-86, and Union Pacific Railroad (UPRR). Named destinations included Phoenix, Nogales, Mesa Gateway. Future destinations will be similar but more localized within the various jurisdictions and influenced by future growth/development areas. It was mentioned that growth is occurring radially along the radial transportation corridor including I-10 and I-19. Some workshops discussed the radial transportation network as an option to the arterial grid network. Jurisdiction representatives were asked to consider linkages to the above destinations. The following are the key linkages that were identified. All jurisdictions identified interstates, state highways, and major streets as key existing linkages. Existing linkages also included transportation hubs such as the TIA, transit centers, modern streetcar, future passenger rail stations, and a tramway station to Mount Lemmon. Jurisdiction representatives noted a need for better connections to TIA from I-10 and I-19. There was general jurisdictional support for the Tucson-to-Phoenix passenger rail and the Mount Lemmon tram for tourism. I-10 will not provide sufficient capacity for the future. Major I-10 reconstruction, a western bypass, and I-11 were discussed as possible solutions. SR-77 will not provide sufficient capacity for the future. High capacity transit and new corridors were discussed as possible solutions. General support for regional parkways (Tangerine Road, Sahuarita Road, SR-210 extension were discussed). Parkways were discussed, but there is no consistent definition for parkways. MAG and MCDOT developed a design concept for parkways with indirect left-turn turn intersections Think Locally Exercise Following the Think Regionally exercise, representatives were asked to focus on jurisdictions perspectives, while keeping the previous exercise discussion in mind. The following are the general key points drawn from the Think Locally discussions. Plans for the Aerospace Sonoran Corridor were supported by jurisdictions for integration with Southlands transportation linkages (Alvernon Way, Wilmot Road, Kolb Road, Nogales Highway, Sahuarita Road, Pima Mine Road, and El Toro Road were discussed). Parkways were identified for urbanized areas to supplement the grid system (SR-210, Alvernon Way to River Road, Kolb Road to Ina Road-Sunrise Road-Skyline Drive, Kino Parkway to TIA, and Pantano Parkway were discussed). Non-parkways should be considered in urbanized areas. Improving the grid system per the Tucson Major Streets and Routes Plan, increased mode choices, and increased transit and alternate mode choices were discussed. 17

22 Road connections between I-19 to I-10 south of TIA also need to be made. Jurisdictions supported regional growth areas defined by PAG is the 2040 Long-Range Transportation, in addition to infill State Highways and Routes In the final exercise, workshop participants were asked to discuss state highways and routes and how they benefit regional mobility. These state highways and routes are shown on Figure 7. The key issue for state highways is balancing the function of state highways with access to and from developments. It was suggested that state highway standards be different in urbanized areas. An example of an area where this balance may be needed is SR-77, which provides access to commercial areas in Tucson and Oro Valley. Other key issues discussed during the workshops regarding state highways and routes included the following: Many designated state routes might not make sense (i.e. Campbell Avenue north of Aviation Parkway and Grant Road were discussed). Some designated state routes should be retained, such as SR-989 west of I-10. Suggestions for new state routes included Park Link Drive from SR-79 to I-10 and Lambert Lane from I-10 to SR-77. The majority of workshop participants noted that they wanted to retain the current state routes until it can be determined what state routes will benefit the community as state highways. Additionally, it was recognized that the Regional Transportation Authority (RTA) is improving state routes without regard to state highway design standards. There is a need for another north-south connection other than SR-77. There are difficulties balancing access and mobility with ADOT standards. 18

23 Figure 7 - State Highway and State Route Systems 19

24 2.5 TAC Workshop on Defining Criteria for the RSC Network A TAC workshop was held on February The goal of the workshop was to develop RSC network criteria and alternatives that can be evaluated using the PAG travel demand model. TAC members provided direct input to the development of a single RSC network that is presented in Chapter 3. The workshop involved the following facilitated discussions: Workshop Exercise 1 Should State Highways Serve as a Base for the RSC Network? The first facilitated discussion explored whether currently designated state highways in the region, including interstates, should serve as a base for the RSC network on which other regionally significant corridor would be added. Comments and questions were: What is the difference between a state route and a state highway? State highways are under ADOT jurisdiction. State routes are not under ADOT control, but have the potential for becoming a state highway if the routes are upgraded to state design standards and approved by the Arizona State Transportation Board as part of route transfer negotiations. State routes in Tucson are designated as paper routes eligible for Highway User Revenue Funds (HURF) for planning and preliminary design. It is up to the local jurisdictions to design and build these routes to state standards and then, if desired, petition ADOT for route transfer. ADOT access policies and practices on state highways in local, urbanized jurisdictions is a significant challenge. Workshop participants discussed a planned ADOT study (the study, entitled the Smart Transportation Guidebook, is now underway) to review state design and access guidelines in urbanized areas. The consensus of the TAC was that state highways in the region, including interstates, should serve as a base RSC network Workshop Exercise 2 Identify State Routes for the RSC Network A mapping exercise was conducted to identify state routes that should be included in the RSC network. Current state routes and state highways are shown in Figure 3 for reference. Based on input from the TAC Workshop, state routes on the RSC network are: Houghton Road (SR 983) Sandario Road (SR 989) Alvernon Way (SR 489) Aviation Highway (SR 210) Valencia Road (SR 910) Golf Links (SR 810) Grant Road (SR 110) Sahuarita Road (SR 982) Tangerine Road (SR 989) Kolb Road (SR 110) Campbell Road (SR 589) 20

25 2.5.3 Workshop Exercise 3 RSC Design and Access Guidelines Discussed was a working definition for a roadway classification to fill the gap between a fully access controlled freeway and a local arterial. It was noted that these facilities have been called many names including desert parkways, Arizona parkways, and regional arterials. The definition of parkways contained in the 2040 RTP is that a parkway provides a higher-level of mobility than an arterial, but less than a freeway. There was support for naming this facility type regional arterials. Examples of criteria for urban and suburban regional arterials were reviewed. Design guidelines for regional arterials are presented in Chapter Workshop Exercise 4 Expanded RSC Network This exercise focused on identifying an expanded system of regional arterials to be included on the RSC network. Table 5 summarizes the regional arterials that resulted from the TAC workshop which were subsequently presented, reviewed, and revised by the TAC. Table 5 - Regional Arterials included in the RSC Network Road From To Tangerine Road/Sandario Road SR 77 PCDOT corridor in Avra Valley Avra Valley Road I-10 PCDOT corridor in Avra Valley Pinal Airpark Road I-10 PCDOT corridor in Avra Valley Ina Road/Skyline Drive/Sunrise Silverbell Road Grant Road Drive/Craycroft Road Grant Road/Houghton Road I-10 Sahuarita Road River Road/Alvernon Way I-10/Orange Grove Sahuarita Road La Cholla Road Tangerine Road Ruthrauff Road Ruthrauff Road/Wetmore Road Silverbell Road SR 77 Silverbell Road Ina Road Grant Road Grant Road/Kolb Road/Wilmot I-10 Sahuarita Road Road Pima Mine Road I-19 I-10 Sahuarita Road I-19 SR 83 El Toro Road I-19 Wilmot Road Valencia Road SR-86 Old Spanish Trail Golf Links Alvernon Way Houghton Road Old Vail Connection Alvernon Way Nogales Highway Nogales Highway/Duval Mine Valencia Road I-19 Road Campbell Avenue SR-210 Valencia Road 21

26 3. RSC Network This chapter describes the preliminary RSC network based on research, stakeholder surveys, and jurisdictional meetings, and input from the TAC workshop conducted in in February 2013 to develop the RSC network and features. Results of performance testing of the preliminary RSC network are presented in this chapter. The preliminary RSC network was refined using input from PAG-member jurisdictions and the Technical Advisory Committee. The resulting RSC network consists of the following roadways and corridors: Current state highways Proposed new state highways State routes Regional arterials The RSC network is shown in Figure Current State Highways The first facilitated discussion in the February 2013 TAC Workshop explored whether currently designated State highways in the region, including interstates, should serve as a base for the RSC network on which other regionally significant corridor would be added. In the workshop, it was decided that the state highways owned, operated and maintained by ADOT should be a foundational element of the RSC network. These state highways are: Interstate 10 Interstate 19 SR 77 SR 79 SR 82 SR 83 SR 86 SR 90 SR 210 SR Proposed New State Highways Proposed state highways were identified based on roadways and corridors recommended in PAG, ADOT, and member jurisdiction transportation studies over recent years. Proposed state highways are: Park Link Drive (Pinal County) PCDOT Corridor in Avra Valley Aerospace Sonoran Corridor (ASC) including Old Vail Connection Road, Alvernon, and Pima Mine Road Aviation Parkway extension to I State Routes State routes on the RSC network are: Houghton Road (SR 983) Sandario Road (SR 989) Alvernon Way (SR 489) 22

27 Aviation Highway (SR 210) Valencia Road (SR 910) Golf Links (SR 810) Grant Road (SR 110) Sahuarita Road (SR 982) Tangerine Road (SR 989) Kolb Road (SR 110) Campbell Road (SR 589) 3.4 Regional Arterials The TAC endorsed Regional Arterial as the appropriate name for the new roadway classification. The name was further refined to communicate important functional differences between regional arterials in urban and suburban settings. Regional arterials included in the RSC network are summarized in Table 6. Table 6 - Proposed Regional Arterials Road From To Tangerine Road/Sandario Road SR 989 PCDOT corridor in Avra Valley Avra Valley Road I-10 PCDOT corridor in Avra Valley Pinal Airpark Road I-10 PCDOT corridor in Avra Valley Ina Road/Skyline Drive/Sunrise Silverbell Road Grant Road Drive/Craycroft Road Grant Road/Houghton Road I-10 Sahuarita Road River Road/Alvernon Way I-10/Orange Grove Old Vail Connection Alvernon Way Pima Mine Road Sahuarita Road La Cholla Road Tangerine Road Ruthrauff Road Ruthrauff Road Silverbell Road SR 77 Silverbell Road Ina Road Grant Road Grant Road/Kolb Road/Wilmot I-10 Sahuarita Road Road Pima Mine Road Alvernon way I-10 Sahuarita Road I-19 SR 83 El Toro Road I-19 Wilmot Road Valencia Road SR-86 Old Spanish Trail Golf Links Alvernon Way Houghton Road Old Vail Connection Nogales Highway Alvernon Way Nogales Highway/Duval Mine Valencia Road I-19 Road Campbell Avenue SR-210 Valencia Road 23

28 Figure 8 - Recommended RSC Network 24

29 3.5 RSC Network Performance The RSC network was coded into the PAG 2040 Regional Transportation Plan (RTP) travel demand model to evaluate the performance of an enhanced regional network (with the RSC network) in comparison to the PAG 2040 RTP network. The model was revised to reflect the operational characteristics of regional arterials in both urban and suburban areas. These revisions included: Regional arterials in urban areas have six through lanes with daily capacity of 73,000 vehicles per day and posted speeds of 45 mph. Regional arterials in suburban areas have four through lanes with daily capacity of 55,000 to 65,000 vehicles per day and posted speed of mph Average Trip Distance and Time The performance assessment indicates that the RSC network provides better connectivity and thus results in longer average trip distance while having similar or even less average trip time (average travel speed increased by nearly 5 percent for home based work trips). These results are shown in Table 7, by trip purpose. Table 7 - Average Trip Times and Distances, by Trip Purpose Trip Purpose RTP with RSC network RTP Average Time (minutes) Average Distance (miles) Average Time (minutes) Average Distance (miles) RTP with RSC Network/RTP % Average Time Average Distance Home based work % % Home based school Home based shopping % % % % Home based other % % Non home based % % Home-based University of Arizona % 99.57% Light truck % % Heavy truck % % Average % % Trips and Personal Miles Traveled, by Trip Purpose Number of trips and personal miles traveled under the RSC and RTP networks are summarized in Table 8. Although the number of trips is the same under both networks, the number of personal miles traveled is higher under the RSC network. 25

30 Trip Purpose Table RSC Network Modeling Results Personal Trips RTP with RSC network RTP Network RTP with RSC network Personal Miles Traveled RTP Network RTP with RSC network/rtp % Home based work 928, ,307 10,862,220 10,421, % Home based school 752, ,845 3,984,176 3,867, % Home based shopping 618, ,112 4,904,398 4,811, % Home based other 2,458,477 2,458,477 15,480,383 15,041, % Non home based 2,999,749 2,999,749 16,441,014 15,834, % Home based University of Arizona 81,499 81, , , % Light truck 293, ,253 1,924,360 1,872, % Heavy truck 77,487 77, , , % Total 8,209,727 8,209,727 54,914,744 53,164, % Trips by Mode Because the RSC network is operating more efficiently, it is attracting trips from the other modes of travel in the regional model. These results are shown in Table 9. Table 9 - Trips by Mode RTP with RSC RTP with RSC RTP network network/rtp % Transit 52,297 54, % Internal Auto 5,450,894 5,438, % DA Personal 3,920,383 3,911, % SR2 Personal 1,459,439 1,455, % SR3 Personal 1,379,046 1,375, % total auto Personal 6,758,868 6,742, % Avg. Auto Occupancy % Bike 118, , % Walk 965, , % External Auto 238, , % Total Auto 5,689,519 5,677, % 26

31 4. Regional Arterial Guidelines This chapter discusses proposed regional arterial guidelines in both urban and suburban areas. It includes a discussion of the differences between regional arterials in urban and suburban areas, capacities of regional arterials, intersection design alternatives to optimize intersection capacity, and design guidelines based on key attributes such as: Posted Speed Right-of-Way Lighting Bicycle and Pedestrian Accommodations Transit Accommodations Intersections with major roadway facilities Minimum access spacing Daily capacity 4.1 Regional Arterials in Urban and Suburban Areas While it is understood that a regional arterial should generally provide higher mobility than an arterial and more access than an access controlled freeway, it was also determined that regional arterials in urban and suburban areas would likely have different characteristics. Table 10 presents the fundamental differences between regional arterials in urban versus suburban settings. As indicated in the table, regional arterials in a suburban setting are likely to have more available right-of-way and a lesser need for access than those located in an urban environment. These attributes form the basis of the design criteria, which will be discussed later in this chapter. Table 10 - Regional Arterial Attributes by Context Attribute Urban Suburban Travel Speed Moderate Higher Level of Access Control Moderate Higher Right-of-Way Limited/costly Generally available Lighting Continuous At conflict locations Pedestrian/Bicycle Use Higher Lower Transit Higher Lower Based on the preceding discussion, the following definitions were developed for urban and suburban regional arterials: Urban Regional Arterial: An urban regional arterial includes more access control and higher travel speeds than a principal arterial. Right-of-way may be limited and/or costly to obtain. Pedestrian, bicycle, and transit demands are high. Suburban Regional Arterial: A suburban regional arterial has a higher-level of access control than its urban counterpart as well as higher travel speeds. Right-of-way is generally available. Pedestrian, bicycle, and transit demand is typically lower than on urban roadways. 27

32 4.2 Roadway Capacity of Regional Arterials Along any roadway corridor, intersections are where bottlenecks occur, and therefore provide the capacity limitations for the roadway. As an example, freeways and other access-controlled facilities avoid at-grade intersections in order to maximize capacity. Since regional arterials are meant to provide higher mobility than a principal arterial, it is particularly important to address intersection design and increase intersection throughput wherever possible. Short of providing fully grade-separated intersections, intersection throughput can be improved by: Adding lanes for turning movements Reducing/limiting the number of signal phasing. This includes, but is not limited to, turn restrictions that reduce the number of movements being served. Given that most major intersections already include dedicated turn lanes, the remaining tool to improve intersection capacity is to reduce the number of signal phases (for at-grade intersections). Table 11 shows how capacity is affected as the number of phases at a signalized intersection increases. As shown in the table, major street Reducing the number of phases from 4 to 2 provides more additional capacity (with lesser impacts) than widening a roadway from 4 to 6 lanes. capacity can increase approximately 30% when reducing the number of signal phases from four to three. Further reducing the number of phases from three to two results in an additional 33% increase in capacity for the major street through movement. Combining both reductions, a two-phase signal increases the capacity of the major street by more than 70% when compared to a four-phase signal operation. To put this in perspective, reducing the number of phases from four to two provides more additional capacity (with lesser impacts) than widening a roadway from four to six lanes. 28

33 Table 11 - Intersection Capacity 4.3 Interchange and Intersection Design Alternatives which Reduce Signal Phases There are several types of alternative intersection designs which reduce the number of signal phases. Although specific intersection types are likely to be considered during more detailed planning and/or design stages for regional arterials, the TAC did endorse the concept of using alternative intersection designs to increase capacity. Working Paper 3 provides detailed descriptions of the following alternative intersection designs, all of which may result in additional right-of-way costs which must be considered in light of the capacity benefits of the intersection designs. The TAC endorses the concept of using alternative intersection designs to increase capacity. 29

34 = Grade-Separated Interchange = Continuous Green T Intersection = Indirect Left Turn Intersection (Express Left Turn Intersection) = Superstreet Median Crossover Intersection = Quadrant Roadway Intersection = Continuous Flow Intersection = Parallel Flow (or Paraflow) Intersection 4.4 Design Guidelines for Regional Arterials The design team developed a draft set of design guidelines based on the key attributes identified for regional arterials and functional classification criteria from other jurisdictions and associations. The guidelines were then refined with input from the TAC, and are discussed below and summarized in Table 12. Posted Speed Regional arterials are expected to serve longer trips than standard arterials, and therefore should have higher posted speeds than standard arterial roadways. In addition, because suburban regional arterials will likely have more available right-of-way and lower access density than their urban counterparts, speeds are expected to be higher on the suburban regional arterials. Right-of-Way In order to ensure sufficient right-of-way at intersections for turn lanes and transit facilities, while minimizing mid-block impacts to adjacent land uses, rights-of-way were developed separately for midblock and intersection locations. The right-of-way for suburban regional arterials is expected to be more easily attainable, and therefore the standard is for a wider section. This will also allow the establishment of new drainage conveyance facilities and utility corridors. Urban regional arterials may be constrained by existing developments, so a narrower right-of-way is acceptable to minimize impacts to the built environment. Lighting In an urban setting, continuous street lighting is important due to the higher intersection/access density, and the increased pedestrian, bike, and transit use, among other reasons. In a suburban setting, conflict points are less frequent and lighting levels are typically lower. In addition, continuous street lighting may contribute to light pollution. Therefore, lighting is only shown for signalized intersections for suburban regional arterials. Bicycle and Pedestrian Accommodations The TAC has made it clear that bicycle and pedestrian facilities are a critical element of both urban and suburban regional arterials. Both types include a six-foot bicycle lane. In addition, while the urban regional arterials include wide sidewalks to create an appealing walking environment, suburban regional arterials can provide pedestrian facilities via sidewalks or a wider paved path. Transit Accommodations Because urban areas typically have a higher development density than suburban areas, transit facilities are more likely to be needed on urban regional arterials than on suburban regional arterials. The urban design guidelines provide for bus facilities on all roadways as well as potential high-capacity transit facilities (BRT, LRT, streetcar), while bus facilities are only needed on suburban regional arterials if transit service is existing or planned. Intersections with Major Roadway Facilities As previously discussed, intersections are where bottlenecks occur along a roadway corridor, so it is critical to provide high-capacity intersections wherever possible along both urban and suburban regional arterials. Because of impacts to adjacent neighborhoods and businesses, as well as possible right-of-way limitations, intersections of urban regional arterials with other regional arterials or standard arterials are expected to be at-grade, with a maximum of three-phase signal operation. This will help to 30

35 improve capacity and throughput at each intersection. For suburban regional arterials, intersections with other regional arterials should be grade separated or, if at-grade, should have a maximum of two-phase signal operation. Suburban regional arterial intersections with standard arterials can be at-grade with a maximum of three-phase signal operation. While the specific intersection type and design will be determined for individual projects, the TAC endorsed the ideas of GSI and at-grade intersections with two-phase and three-phase maximums. Possible intersection types are discussed earlier in this chapter. Minimum Access Spacing While both urban and suburban regional arterials will be developed as higher mobility roadways, it is expected that there will be a higher-level of access for the urban roadways to serve the existing land uses. Therefore, the minimum signal spacing is half a mile for urban regional arterials and one mile for suburban regional arterials. Although the negative impacts of short access spacing are well documented, agencies also need to avoid excessive access restrictions. Therefore, full and directional median openings will be provided at regular intervals as long as the minimum spacing requirements shown in the table are met. Other forms of access management such as shared access points, access to side streets, and frontage roads should also be encouraged and used when feasible. Daily Capacity - Because intersections are the capacity-limiting locations for roadways, the daily capacity was estimated based on intersection capacity. Intersection capacities were calculated with the assumptions shown in Table 13. Note that dual left turn lanes were assumed for the arterials and regional arterials with three-phase signal operations. 31

36 Table 12 - Design Guidelines 32

37 Table 13 - Assumptions for Capacity Calculations Thru Saturation Flow Rate (veh/hr/ln) Left Turn Saturation Flow Rate (veh/hr/ln) Right Turn Volume (single lane) g/c Ratio for major street thrus g/c Ratio for major street left turns D (% of traffic in peak direction) K (% of daily traffic in peak hour) Arterial Three-Phase Signals Regional Arterials Two-Phase Signals Freeway 1,800 1,900 1,900 2,350 1,500 1, N/A N/A 35% 45% 60% N/A 15% 15% N/A N/A 60% 60% 60% 60% Cross-sections, presented in Figures 9 through 12 on the following pages, were developed for four-lane and six-lane urban and suburban regional arterials based on the design guidelines. 33

38 Figure 9 Four-Lane Urban Regional Arterial (subject to further refinement) 34

39 Figure 10 - Six-Lane Urban Regional Arterial (Subject to further refinement) 35

40 Figure 11 Four-Lane Suburban Regional Arterial (subject to further refinement) 36

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