Ship Creek Multi-Modal Transportation Plan: Technical Memo #2

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Technical Memorandum #2
Development of Transportation Alternatives

Introduction

Phase I of the Ship Creek Multi-Modal Transportation Plan developed an existing transportation system inventory as well as low, medium, and high trip projections. Based on the existing conditions work completed in Phase I and comments received from the January 2000 Ship Creek Transportation Plan Task Force meeting, work began on the development of future transportation alternatives for the Ship Creek area.

The existing Ship Creek study area is composed of many stakeholders including the Municipality of Anchorage, Alaska Railroad Corporation, Port of Anchorage, Government Hill residential neighborhood, and various industrial related businesses. Ship Creek is also a seasonal and recreational tourist draw focused on the popular fishing activity along Ship Creek. This diverse set of stakeholders each have existing as well as future inter-modal transportation needs that should be met in order to ensure the efficient movement of goods and people. Proposed mixed-use redevelopment activities in the southwestern portion of Ship Creek will create new transportation needs such as bus, ferry, and rail transit service and require the accommodation of increase automobile and pedestrian traffic. In essence, the future success of the Ship Creek study area as a vibrant, mixed-use urban center will depend upon the integration of the existing and future stakeholder transportation needs.

This memorandum presents several transportation improvement alternatives that could be implemented to mitigate the transportation needs of the existing stakeholders as well as support the redevelopment of the Ship Creek area. As each potential project was developed, consideration was given to how a multi-modal approach could be taken. Thus, while the primary impetus for a given mitigation alternative may center on rerouting heavy truck traffic for example, provision of appropriate pedestrian and trail facilities was also given consideration.

Ship Creek Travel Modes

The Ship Creek transportation system alternatives were developed based on an assessment of the existing and proposed Ship Creek travel modes. A brief description of each of these travel modes is presented below, based on information outlined in the various stakeholder master plans.

Trails

The trails component includes elements from many plans including the Ship Creek Master Plan, the Anchorage Trails Plan, and the Ship Creek Trails Plan. The Ship Creek recreational trail runs along the south bank of Ship Creek while the proposed North Bank Esplanade follows the north bank along the Whitney Road alignment. In addition, the Ship Creek Point /Marsh Trail extension is included in the west portion of the study area. A connection with Ship Creek Point and Government Hill is included. These trail system improvements are intended to improved circulation and bike/pedestrian recreational opportunities within Ship Creek and the surrounding land uses.

Pedestrian and Bicycle

The pedestrian and bicycle system relies on improved sidewalk facilities throughout Ship Creek, improved pedestrian connections to downtown and an improved grid-network of on-street bicycle facilities to complement the trail system. The main emphasis of the pedestrian system is focused in the southwestern portion of the Ship Creek study area, as this region is a popular fishing area and has the greatest potential for mixed-use redevelopment opportunities.

Bus Transit

The bus transit system looks to expand transit service into the Ship Creek region. Currently, there is no bus service in the Ship Creek area, however potential redevelopment opportunities in the southwestern region of Ship Creek could provide the impetus for north-south and east-west bus routes. In particular, the new passenger rail terminal on 1^st Avenue would create an opportunity for a bus transit loop that would link Ship Creek to downtown Anchorage. Future demand responsive transit opportunities could also be implemented to serve the proposed ferry terminal. With a potential Ingra-Gamble extension to Whitney Avenue, transit service could be extended to the eastern portion of the Ship Creek study area, however this service would be dependent upon redevelopment of the power plant.

Ferry Transit

A potential ferry terminal is being considered for the Ship Creek study area to link the City of Anchorage to the Mat-su Borough located on the west side of the Knick Arm. Several locations for the ferry terminal are being considered including one along Ship Creek Point and one in the Port of Anchorage near the “Intermodal Marine Facility.” For the purposes of this study, a ferry terminal was considered for Ship Creek Point, until more definite direction can be provided as to the preferred location for such a facility. Enhanced roadway, bus transit, and pedestrian facilities have been considered to improve accessibility to and from the ferry terminal.

Passenger Rail

The passenger rail system plan looks at improving passenger and commuter rail services in Ship Creek. The Ship Creek Development Master Plan includes a provision for a new passenger and commuter rail terminal facility between Ship Creek Avenue and 1^st Street. This center is envisioned as a major inter-modal transportation facility that will include pedestrian, bus transit, and automobile parking facilities.

Freight Rail

The freight rail system remains largely unchanged in terms of adding additional rail alignments within Ship Creek. Specific consideration was given to those aspects of the existing rail lines that would improve the operation and interaction with the other Ship Creek transportation modes, such as the enhancement of railroad crossings.

Trucks

The truck system looks at improving truck access to the Port of Anchorage and the various industrial land uses in the eastern portion of Ship Creek. Two truck system alternatives have been developed to improve truck access to and from the Ship Creek area. Both alternatives significantly improve truck access between the Ingra-Gamble couplet and the Port of Anchorage. One alternative relies on a viaduct connection to Whitney Avenue, while the other alternative calls for a viaduct connection across Ship Creek, similar to the A/C Street bridge. A tunnel under the Government Hill residential area would then provide a direct connection to the Port of Anchorage. Along with both truck alternatives, a north Port access road was also included, providing alternative access to the Port of Anchorage.

Automobile

The main emphasis of the automobile system is to improve vehicular access to the potential Ship Creek redevelopment area in the southwestern portion of Ship Creek, while also improving access for the existing Ship Creek businesses. The automobile system plan includes a connection from the Ingra-Gamble couplet to Ship Creek Avenue. This alternative provides improved access to the planned multi-use area on the south side of Ship Creek. The system also includes provision for the westward extension of Ship Creek Avenue to Ship Creek Point and an alternative for a north Port access road to the Port of Anchorage.

Alternatives Development - Methodology

The conceptual multi-modal alternatives were developed based on the individual Ship Creek transportation modes described above. These individual modes were combined into discreet groups, forming the basis of the multi-modal alternatives. These groups are outlined as follows:

Trails and Pedestrian/Bicycle
Transit (bus, ferry, and commuter rail)
Truck (Option A)
Truck (Option B)
Automobile

A major transportation mode within the Ship Creek study area is the Alaska Railroad Corporation. Future railroad improvement plans involve the realignment of the rail line that parallels North C Street, the installation of several new railroad tracks to be located to the north of the existing main rail yard, and some possible track extensions within the southern perimeter of the Port of Anchorage. Although these improvements are significant to the continued operation of the freight rail system, the basic alignments for these improvements are already in place. For this reason, a separate rail freight alternative was not analyzed in detail. Instead, this study chose to show how the other current and proposed transportation modes will interact with the existing freight rail system alignments.

Each of these “modes” was initially considered from a stand-alone viewpoint in order to design the “ideal” operating network. This ideal operating network was formulated by looking at the land uses of the Ship Creek study area and designing a modal network that best accommodates its travel needs. For example, the ideal truck alternative was formulated by designing for the truck travel needs of the Port of Anchorage and industrial businesses without giving consideration to the pedestrian needs associated with Ship Creek fishing events. Appendix “A” contains a map for the each of the individual mode plans.

The four individual modal plans were then overlaid and considered from the perspective of a multi-modal transportation system. Each alternative was developed with one primary transportation mode in mind, and the other modes were added as secondary modes, working within the constraints dictated by the primary mode plan. For example, for the pedestrian/bicycle mode alternative, all the most desirable elements of various Ship Creek area trail system and on-street pedestrian and bicycle system plans were included. Then, the other modes including transit, rail, truck and automobile were accommodated to the best extent possible working around the constraints introduced by the pedestrian and bicycle plan. Five rather than four alternatives were developed because two truck alternatives were considered feasible at this stage, although that number may eventually be reduced to one. The five transportation system alternatives are presented in Appendix “B.”

Table 2-1 describes the elements introduced as part of the ideal plan for the primary mode (in italics) and also describes potential conflict points and the modifications that were made for each of the secondary modes.

Overview

The overall impression given by the discussion in Table 2-1 and the figures illustrated in Appendix “B” is that there is relatively little conflict between the different primary mode alternatives. Where conflicts do occur, they are the result of the Ingra-Gamble extension options. This was specifically evident in the case of the preferred automobile and preferred truck options since they are serving different land uses and different geographical areas. Other modal alternatives such as the Pedestrian/Bicycle and Transit/Rail plans co-exist with minimal conflict.

Primary Mode	Trails and Pedestrian/Bike	Transit (Bus/Ferry)	Rail	Truck	Automobile
Trails and Pedestrian/Bike	The system provides a comprehensive trail and bike/ped network within the Ship Creek redevelopment area with appropriate linkages to Downtown Anchorage and Govt. Hill. Specific projects include: A recreational trail spanning the Ship Creek study area, providing opportunities for hiking and biking. A recreational trail connection to the Govt. Hill residential area. Improved sidewalk facilities along 1^st Street and N. C Street. Sidewalk facilities along a proposed extension of Ship Creek Avenue to the proposed ferry terminal. A proposed pedestrian bridge that would link downtown Anchorage to the Ship Creek redevelopment area. A proposed suspended walkway along A/C Street linking Govt. Hill to the Ship Creek redevelopment area.	- A connected pedestrian network is an important element in the successful operation of transit service. The proposed transit routes do not conflict with the trail and bike/pedestrian network, but provides an opportunity to significantly enhance the transit element.	- Improved and expanded trail and pedestrian facilities create additional rail crossing issues with the existing rail lines. - Within the Ship Creek redevelopment area, expanded pedestrian and bicycle facilities would compliment the potential for a new passenger rail terminal.	- A modification to the preferred truck alignment would be required to accommodate the preferred trails and pedestrian/bicycle alternative. This modification involves the realignment of Whitney Road north of the existing Power Plant to accommodate the proposed trail facilities on the north side of Ship Creek. - Truck operations from the proposed ferry terminal at Ship Creek Point could result in additional truck movements through the more pedestrian oriented Ship Creek redevelopment area.	- For the most part, the automobile network and the preferred trail and pedestrian/bicycle alternative compliment each other. Minor conflict points develop within high pedestrian areas such as the N. C Street bridge.
Transit (Bus/Ferry)	- The proposed trails and pedestrian/bike network do not conflict with the preferred transit alternative, but provides an opportunity to significantly enhance the transit element.	This system provides expanded transit service within the Ship Creek redevelopment area. Specific projects include: - Bus service to the proposed passenger rail terminal, forming a transit loop between Ship Creek and Downtown Anchorage. - Proposed ferry terminal to either Ship Creek Point or the Port of Anchorage Intermodal Marine Facility. Demand responsive bus service could link the ferry terminal to the Ship Creek redevelopment area and City of Anchorage. - Potential transit service along an Ingra-Gamble extension to Whitney Road, serving the eastern portion of Ship Creek.	- To accommodate the preferred transit route along Whitney Road, this stretch of roadway would need to be realigned north of the power plant. The existing spur tracks would then need to be relocated.	- No substantial modifications to the truck alignments were necessary to accommodate the preferred bus and ferry alternatives.	- The preferred automobile alignment relies on the Ingra-Gamble to Ship Creek Avenue connection, while the preferred transit alignment relies on the Ingra-Gamble to Whitney Road connection. This conflict of interests results in a modification to the preferred auto alignment.
Truck A	- Limiting truck movements to Whitney Road provides fairly good separation between truck-oriented uses north of Ship Creek and the multi-use area on the south side of Ship Creek. - No modifications to the trail and pedestrian alignments were necessary to accommodate the preferred truck option “A” alignment.	- Truck option “A” requires an Ingra-Gamble to Whitney Road connection. The connection would provide increased bus transit service throughout the Ship Creek area. For this reason, no modifications to the bus or ferry transit service was necessary to accommodate the preferred truck option “A” alternative.	- Ingra-Gamble connection to Whitney Avenue may conflict structurally with the passenger/freight rail line. However, lacking a more detailed engineering analysis, it will be assumed that no modifications to the passenger/freight rail line will be necessary to accommodate the preferred truck option “A” Ingra-Gamble alignment. - The Ingra-Gamble alignment to Whitney Road increases truck movements along North C. Street. To increase the efficiency of truck movements between North C. Street and Whitey Road, this intersection would need to be improved, creating a conflict point with the existing rail lines. - The existing rail alignment along Ocean Dock Road has multiple road/rail crossings, creating a conflict with the safe and efficient truck operations.	This system provides improved access to the north Ship Creek vicinity as well as the Port of Anchorage. Specific projects include: - Ingra-Gamble extension to Whitney Road. - Whitney Road realignment to the north side of the power plant. - An improved Whitney Road/North C Street intersection. - A north Port access road.	- The preferred automobile alignment relies on the Ingra-Gamble to Ship Creek Avenue connection, while the preferred truck option “A” alignment relies on the Ingra-Gamble to Whitney Road connection. This conflict of interests results in a modification to the preferred auto alignment.
Truck B	- Provides good truck separation between the Port of Anchorage and the remainder of the Ship Creek study area. - No modifications to the trail and pedestrian alignments were necessary to accommodate the preferred truck option “B” alignment.	- This option does not provide the opportunity to enhance transit service to the eastern Ship Creek region.	- The Ingra-Gamble viaduct over the Ship Creek area may conflict structurally with the Alaska Railroad Corporation rail yards. However, lacking a more detailed engineering analysis, it will be assumed that no modifications to the passenger/freight rail line will be necessary to accommodate the preferred truck option “B” Ingra-Gamble alignment.	This system is designed to provide direct access to the Port of Anchorage. Specific projects include: - An Ingra-Gamble connection across Ship Creek to Loop Road. - A tunnel under Govt. Hill would link the Port of Anchorage to Loop Road. - A north Port access road.	- This option does not provide an opportunity to enhance automobile access to the Ship Creek redevelopment area.
Automobile	- Increased automobile access to the Ship Creek redevelopment area could potentially create safety conflicts with trails and ped/bike networks. However, these conflicts do not require trail and pedestrian/bicycle alignment modifications to accommodate the preferred automobile alignment.	- A potential conflict arises between the bus transit network and the auto preferred Ingra-Gamble connection to Ship Creek Avenue. With this alignment, bus service to the north and east sides of the Ship Creek study area would be a less feasible option.	- The Ingra-Gamble connection to Ship Creek Avenue may conflict with the Alaska Railroad Corporation rail yards. However, lacking a more detailed engineering analysis, it will be assumed that no modifications to the passenger/freight rail line will be necessary to accommodate the preferred automobile Ingra-Gamble alignment. - The existing rail alignment along Ocean Dock Road has multiple road/rail crossings, creating a conflict with the safe and efficient movement of automobiles.	- A potential conflict arises between the truck network and the automobile-preferred Ingra-Gamble to Ship Creek Avenue connection. With this alignment, increase truck traffic would occur along Ship Creek Avenue and within the Ship Creek redevelopment area. Potential pedestrian safety and community vitality issues may arise.	This system provides direct automobile access to the Ship Creek redevelopment area. Specific projects include: - An Ingra-Gamble connection to Ship Creek Avenue. - The extension of Ship Creek Avenue to Ship Creek Point ferry terminal. - A north Port access road.