chapter one: purpose and need ea/chapter 1.pdfkri d g e d riv e h i l t on d r iv e ri v e r si d e...

Dixie Drive Interchange

Draft Environmental Assessment

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1.1 INTRODUCTION1.1.1 PROPOSED ACTIONThe Federal Highway Administration (FHWA) and the Utah Department of Transportation (UDOT), in conjunction with the City of St. George, propose to construct a new interchange on I-15 at approximately Mile Post 5 in St. George, Utah (see Figure 1-1 Project Location). The project area is located in the City of St. George, Washington County, Utah, and includes the I-15 corridor between the Bluff Street Interchange and the Virgin River crossing (see Figure 1-1 Project Location). The Dixie Drive Interchange would be interconnected with the Bluff Street Interchange through a system of one-way collector/distributor roads. The Dixie Drive Interchange would tie into Dixie Drive just before the existing Dixie Drive Bridge over the Santa Clara River, to the west, and at 270 East just behind the Convention Center, to the east (see Chapter 2 for a more detailed description of the Proposed Action).

1.1.2 PROJECT TERMINIThe FHWA has determined the logical termini for this Environmental Assessment (EA) shall be the Dixie Drive Bridge (Structure #053046F) to the west of I-15 and the intersection of Dixie Drive and 270 East (local access road directly east of the Dixie Convention Center) to the east of I-15 in St. George, Washington County, Utah (see Figure 1-1).

Chapter One: Purpose and Need

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Figure 1-1 Project Location

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Pursuant to the requirements of 23 CFR 771.111(f), the project termini as determined by FHWA (1) does not restrict consideration of alternatives, (2) has independent utility, and (3) connects logical termini and is of suffi cient length to address environmental issues (see March 11, 2008 letter in Chapter 4).

1.1.3 PROJECT HISTORY AND TRANSPORTATION PLANNINGBluff Street Corridor StudyThe origins of the Dixie Drive Interchange project came about as a result of the Bluff Street Corridor Study which was prepared by UDOT and the City of St. George and was completed in July of 2007 (see Bluff Street Corridor Study in Appendix A). As part of the Bluff Street Corridor Study, the Bluff Street Interchange was analyzed with regards to future traffi c volumes, existing defi ciencies, safety, and operations. The Bluff Street Corridor Study evaluated several alternatives that would improve the Bluff Street Interchange. The analysis indicated that the conversion of the Bluff Street Interchange to a tight diamond interchange (TDI) would provide the capacity for the 2015 travel demand. Construction of these improvements was completed in Fall 2008.

However, the analysis showed that the improvements to the Bluff Street Interchange could only service about 80 percent of the total demand in 2035. Therefore, in order to serve the 2035 travel demand, additional capacity would be required outside the Bluff Street Corridor. In order to meet the regional travel demand in the area, a concept was developed to provide a new interchange on I-15 at Dixie Drive. The new interchange would be interconnected with the Bluff Street Interchange through a system of one-way collector/distributor roads. Together, the two interchanges functioning as an integrated system would provide suffi cient capacity for the area’s travel demands to last beyond the 2035 planning year.

As a result of the conclusions of the Bluff Street Corridor Study, the City of St. George, UDOT, and the Dixie Metropolitan Planning Organization (DMPO), updated their transportation plans to include the Dixie Drive Interchange project.

St. George Master Traffi c and Transportation StudyThe Dixie Drive Interchange project, which includes constructing an interchange at approximately Mile Post 5 and a system of one-way collector/distributor roads to connect with the Bluff Street Interchange, is a part of the 2008 St. George Master Traffi c and Transportation Study (see Figure 1-2).

UDOT Statewide Transportation Improvement ProgramUDOT’s Statewide Transportation Improvement Program (STIP) is a fi ve-year plan of highway and transit projects for the state of Utah. The STIP is UDOT’s offi cial work plan for the development of projects through conception, environmental studies, right-of-way acquisition, planning and advertising for construction for all sources of funds. The I-15; Dixie Drive Interchange project is listed on UDOT’s 2008-2030 STIP.



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Dixie Metropolitan Planning OrganizationDMPO 2007-2030 Regional Transportation Plan (May 2007)The DMPO 2007-2030 Regional Transportation Plan (RTP), a fi scally constrained plan, includes planning for highway improvements, bicycle routes, and transit facilities. The Dixie Drive Interchange is listed in the DMPO RTP (see Table 1-1 and Figure 1-3).

It should be noted that the UDOT Long Range Transportation Plan 2007-2030 and the DMPO RTP 2007-2030 are completely coordinated. Any project that is listed in the RTP is offi cially recognized as a planned project by UDOT. However, depending on available funding the projects may not coincide in the same time frame.

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Figure 1-2 St. George Master Traffi c and Transportation Study (2008)

What is the Dixie Metropolitan Planning Organization?

“The Dixie Metropolitan Planning Organization (DMPO), is the designated agency, as established by the state of Utah, responsible for comprehensive transportation planning in the urbanized and urbanizing areas in Utah’s Washington County, also known as “Utah’s Dixie.”

“The Dixie MPO area includes St. George City, Washington City, Santa Clara City, Ivins City and portions of unincorporated Washington County located within the MPO boundaries. Member jurisdictions which comprise the Dixie MPO include Washington County, St. George City, Washington City, Santa Clara City and Ivins City.”

http://www.dixiempo.org/



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Table 1-1 DMPO RTP Phasing and Planned Transportation Projects Near the Project Area

Project # Project Project TypeGovernment

Agency

Phase 1: 2007-2015

1I-15 Dixie Drive Split Interchange, C&D Roads and Dixie Drive Extension

New Construction

DMPO

Phase 2: 2016-2025

1I-15 Dixie Drive Split Interchange, C&D Roads and Dixie Drive Extension

New Construction

DMPO

2 Riverside Drive, Convention Center Drive to 3050 East

RoadWidening

DMPO

Phase 3: 2026-2030

3 I-15 CorridorRoad

WideningUDOT

Unfunded

4 SR-18, St. George Blvd. to Main Street

RoadWidening

UDOT

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DMPO Project Phasing

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Figure 1-3 DMPO RTP Phasing Map (May 2007)



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1.2 PURPOSE OF THE PROJECTThe project “purpose” is an objective that the proposed project is intended to meet. The “purpose” of this project is to address projected traffi c demand and operations for the Bluff Street Interchange.

1.3 NEED FOR THE PROJECTThe “need” is the transportation defi ciency the project is intended to address. The project is needed because the Bluff Street Interchange lacks capacity for the future traffi c demand. The projected traffi c demand will increase congestion at the Bluff Street Interchange. The increasing congestion will come from:

Population growthTraffi c volume growthEconomic developmentLand development

1.3.1 POPULATION GROWTHThe population growth rate in the DMPO area, which includes Washington County and the cities of St. George, Washington, Ivins, and Santa Clara has been the greatest in the state for the past several years, and has ranked among the growth leaders in the entire country. The St. George population is expected to increase from 73,675 in 2007 to 215,568 people by 2035 (see Table 1-2).

Table 1-2 Population Growth

City2000

Census Population

2007Population Projection

2015 Population Projection



St. George 49,663 73,675 107,925 158,417 215,568

Washington City

8,186 17,176 25,157 36,929 50,246

Ivins 4,450 7,904 11,563 16,972 23,130

Santa Clara 4,630 7,010 10,272 15,073 20,501

Washington County Total

90,354 139,642 205, 544 301,459 410,840

Source: Five County Association of Governments

According to the U.S. Department of Transportation, there are 0.44 automobiles per capita in the state of Utah1. As the population continues to grow in St. George, the number of automobiles on the roadway system will increase, and therefore, traffi c demand at the Bluff Street Interchange will increase as well.

1 http://ntl.bts.gov/faq/highwaystatistics.html

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What is the Project Purpose Statement?

Address projected traffi c demand and operations for the Bluff Street Interchange

•

What is the Need for the Project?

The project is needed because the Bluff Street Interchange lacks capacity for the future traffi c demand. The projected traffi c demand will increase congestion at the Bluff Street Interchange. The increasing congestion will come from:


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1.3.2 TRAFFIC VOLUME GROWTHTraffi c in the project area is increasing, as would be expected in an area that has substantial population growth. The traffi c volumes in the project area have been growing at a rate of about 5 percent per year, and the DMPO projections indicate that this rate of growth will continue into the foreseeable future. Before the year 2035, traffi c demand will exceed current capacity of the Bluff Street Interchange.

Capacity and Level-of-ServiceThe Highway Capacity Manual defi nes the vehicular capacity of a roadway facility as the “maximum number of vehicles that can pass a given point during a specifi ed period under prevailing roadway, traffi c, and control conditions.” In analyzing the capacity of a facility, the concept of level-of-service (LOS) is used.

LOS characterizes the traffi c operations of a facility in terms of such factors as speed, average travel delay, travel times, freedom to maneuver, and driver comfort and convenience. Intersection LOS is determined by the amount of extra time it takes, or delay, to pass through an intersection as a result of starts and stops associated with the intersection control. LOS ranges from A to F, with LOS A representing the best operating conditions (little or no congestion or delay) and LOS F representing the worst operating conditions (extreme congestion and delay with long traffi c queues).

For planning purposes, LOS C (at peak hours) is generally acceptable for rural areas, and LOS D (at peak hours) is acceptable for urbanized areas. In some cases, LOS E may be acceptable, because of improvement constraints such as cost, right-of-way limitations, feasibility, environmental impacts, etc. The proposed project is within the St. George Urbanized Area; therefore, streets should operate at LOS D or better, if possible, during peak hours.

LOS Description

ALOS

FREE FLOW. Low volumes and no delays

B LOS

STABLE FLOW. Speeds restricted by travel conditions, minor delays

C

LOS

LOS

STABLE FLOW. Speeds and maneuverability closely controlled because of higher volumes

DLOS

LOS

LOS

STABLE FLOW. Speeds considerably affected by change in operation conditions. High density traffi c restricts maneuverability, volume near capacity

ELOS

LOS

LOS

LOS UNSTABLE FLOW. Low speeds, considerable delay, volume at or slightly over capacity

F

LOS

LOS

LOS

LOS

LOS

FORCED FLOW. Very low speeds, volumes exceed capacity, long delays with stop-and-go traffi c

Source: Transportation Research Board of the National Academy of Science.

Signalized Intersection Criteria

LOSAverage Control

Delay (s/veh)

A 0-10

B >10-20

C >20-35

D >35-55

E >55-80

F >80



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Existing ConditionsThe Bluff Street Interchange was recently converted to a TDI with a seven lane overpass. The northbound and southbound intersections at Bluff Street are both controlled by signals. I-15 is grade separated and passes under Bluff Street (see Figure 1-4).

The existing LOS during peak hours for each of the major intersections associated with the Bluff Street Interchange is shown in Table 1-3 and Figure 1-5.

Table 1-3 Existing Intersection Level-of-Service (LOS)

Intersection2008 PM Peak Hour

Delay (sec/vehicle)

LOS

Northbound Ramps and Bluff Street

28.0 C

Southbound Ramps and Bluff Street

16.3 B

Black Ridge Drive/Main Street and Bluff Street

39.4 D

Convention Center Drive and Bluff Street

9.8 A

As can be seen in Table 1-3 and Figure 1-5, for existing conditions the intersections associated with the Bluff Street Interchange are operating at an acceptable LOS.

Bluff Street

I-15 Northbound

I-15 Southbound

Figure 1-4 Existing Bluff Street Interchange



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Overall Intersection LOS (2008 PM Peak Hour)

LOS A LOS D LOS B LOS E LOS C LOS F

39.4 Seconds OverallIntersection Delay



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Figure 1-5 Existing (2008) Intersection LOS



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2035 ConditionsThe DMPO QRSII regional travel demand model (2002) was used to estimate year 2035 traffi c volumes. If the Dixie Drive Interchange is not constructed, then the intersections associated with the Bluff Street Interchange would operate at LOS D and LOS F. The projected 2035 LOS during peak hours for each of the intersections are shown in Table 1-4 and Figure 1-6.

Table 1-4 2035 Intersection Level-of-Service (LOS)

Intersection2035 PM Peak Hour

Delay (sec/vehicle)

LOS

Northbound Ramps and Bluff Street

>80 F

Southbound Ramps and Bluff Street

36.3 D

Black Ridge Drive/Main Street and Bluff Street

>80 F

Convention Center Drive and Bluff Street

>80 F

As can be seen in Table 1-4 and Figure 1-6, in 2035 three out of the four intersections associated with the Bluff Street Interchange would operate at failing conditions. The reason the southbound ramps/Bluff Street intersection would operate at LOS D, as opposed to LOS F like the adjacent intersections, is partly because only 70 percent of the intersection’s PM peak hour traffi c demand is passing through the intersection. The adjacent intersections are heavily congested and only allow a limited amount of traffi c to pass through and gain access to the southbound ramps/Bluff Street intersection. The other primary reason the southbound ramps/Bluff Street intersection operates at a much lower delay is that the heavy movements of the intersection (the southeast through, northwest through, and the southwest free right turn movements) do not confl ict with each other.

Additionally, several of the approach delays for the intersections far exceed the 80 seconds delay criteria that defi nes LOS F (see Figure 1-6). These include the following:

Main Street/Bluff Street intersection southbound leg (164.3 seconds delay).Main Street/Bluff Street intersection westbound leg (288.1 seconds delay).Northbound off-ramp at the Bluff Street Interchange (107.9 seconds delay). This delay would cause vehicles to back up onto the I-15 mainline.Northbound ramps/Bluff Street intersection northbound leg (118.9 seconds delay).Convention Center Drive/Bluff Street intersection westbound leg (171.7 seconds delay).Convention Center Drive/Bluff Street intersection northbound leg (134.6 seconds delay).Convention Center Drive/Bluff Street intersection eastbound leg (342.2 seconds delay).

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Overall Intersection LOS (2035 PM Peak Hour without Dixie Drive Interchange)

LOS A LOS D LOS B LOS E LOS C LOS F




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Figure 1-6 2035 Intersection LOS without Dixie Drive Interchange



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Bluff Street Interchange CapacityExisting conditions at the Bluff Street Interchange (TDI) would provide the capacity needed for the 2015 travel demand. However, according to the DMPO QRSII regional travel demand model (2002), 2035 traffi c volumes at the Bluff Street Interchange location exceed the capacity of a TDI, and the interchange would operate as a whole at LOS F. The capacity of a TDI is about 60,000 vehicles per day (vpd), and the 2035 traffi c projection through the Bluff Street Interchange is 74,000 vpd (see Table 1-5 and Figure 1-7).

Table 1-5 Travel Demand on Bluff Street between Main Street and the I-15 Interchange and Interchange Capacity

YearTravel

Demand (vpd)LOS

Capacity of Existing Bluff Street Interchange

Existing (2008) 40,000 D60,000

2035 74,000 F

What happens when traffi c volumes exceed the capacity of a roadway?

Traffi c is stop-and-go with long delays and people tend to fi nd other routes to avoid the congestion.

0

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Capacity of Tight Diamond Interchange

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Figure 1-7 Travel Demand and Interchange Capacity



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1.3.3 ECONOMIC DEVELOPMENTThe economy of the St. George area and Washington County in general is growing at a fast rate. Washington County has been in an economic boom period for the last several years. With an annual job growth rate of 8.3 percent, Washington County has exceeded both Utah and national performances. Washington County’s unemployment rate has consistently been at low levels, even below that of the state, and well below that of the country. This growing economy is attracting businesses and residents to the City of St. George.

The land uses in and around the project area contain residential areas, businesses, and institutional establishments, including the St. George Airport and the Dixie Convention Center (see Figure 1-8). Additionally, the Tonaquint Center Business Park is located just west of the project area. The Tonaquint Center Business Park provides upscale offi ce space for a blend of high-tech development and technology-based companies including Steton Technology, Allconnect, the Washington County Board of Realtors, the Five County Association of Governments corporate offi ce, and headquarters for the Huntsman World Senior Games. Plans for the park envision 24 building sites on 66 acres with nearly 600,000 square feet of building space.

Economic development will result in an increase in employees, customers, and clients traveling into and out of the project area each day. This will continue to increase congestion at the Bluff Street Interchange.

1.3.4 LAND DEVELOPMENTThere has been substantial growth and development over the last several decades in the area the Bluff Street Interchange serves. Highway commercial developments, such as convenience stores/gas stations,

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South GateGolf Course

Figure 1-8 Economic



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restaurants, hotels/motels, and the Dixie Convention Center, have developed in near proximity to the Bluff Street Interchange. Residential, institutional, commercial, and industrial developments are located farther away from the Bluff Street Interchange, but are nevertheless dependent on the Bluff Street Interchange.

Development in Project Area

It is estimated that about one-third of the geographic area of St. George is served by the Bluff Street Interchange, and there is still a considerable amount of vacant land available for future development in this area. These areas include the following:

Vacant areas just west of the airport with residential zoning.Vacant commercial sites along Bluff Street, Sunset Boulevard, and Snow Canyon Parkway.Redevelopment potential at the airport site once it closes (expected to happen in about three to four years). Closure of the airport will make 270 acres available for redevelopment. This redevelopment would include commercial, retail, offi ce and residential uses and is expected to generate over 32,000 new vehicle trips with over 50 percent of this new traffi c expected to use the Bluff Street roadway and the Bluff Street Interchange.

In addition, there are thousands of acres available for future development farther south in the Sun River and Atkinville areas that will generate a considerable amount of new travel demand as these lands are developed. This development will put additional demand on the Bluff Street Interchange as people who will live in these areas will use the Bluff Street Interchange to access some of the downtown areas of St. George and the cities of Santa Clara and Ivins.

As this land is developed in St. George and the surrounding areas, the congestion at the Bluff Street Interchange will increase.

••

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1960 Aerial Photograph of Project Area 2007 Aerial Photograph of Project Area



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1.4 CONCLUSIONThe “purpose” of this project is to address projected traffi c demand and operations for the Bluff Street Interchange.

The project is “needed” because the Bluff Street Interchange lacks capacity for the future traffi c demand. The projected traffi c demand will increase congestion at the Bluff Street Interchange. The increasing congestion will come from:


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chapter one: purpose and need ea/chapter 1.pdfkri d g e d riv e h i l t on d r iv e ri v e r si d e...

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