Draft environmental/section 4(f) statement : administrative action for Missouri River Bridge & Approach Roads, City of Great Falls, Montana

Description of the Area

. The terrain of the area is generally level, with a
gradual increase in elevation on both sides of the river
from about Squaw Island toward 10th Street Bridge, and
away from the river on the north. Railroad tracks follow
the river on the north and south sides with those on the
south being elevated on fill.

The area immediately south of the river is park
land bounded on the south by the C.M.St.P & P. Railroad
and the B.N. Railway tracks. Below the tracks the area
is predominantly residential and park area with some
industrial between 8th Avenue North and the railroad and
some commercial east of 9th Street North and north of 8th
Street North. The south connecting streets, 6th, 7th, 8th
and 9th Streets North, range from residential to commercial,
in the area of 1st Avenue and Central Avenue, and back to
residential toward 10th Avenue South. The percentage of
commercial on each street between 8th Avenue North and 10th
Avenue South is as follows: 6th Street - 46%; 7th Street -
31%; 8th Street - 24%; 9th Street - 43%.

Squaw Island is leased by the Park Board from the
State of Montana and is designated by them as a bird
refuge.

Directly north of the river the land is used mainly
for industrial purposes with some commercial and public
use. Prominent installations are the Phillips Petroleum
Company Ref ineiryy • the Westgate Shopping Center, and the
Sewage Treatment Plant. Between the U.S. 87 bypass and
Smelter Avenue is a commercial area and the Montana
Highway Department Division Headquarters. Still further
north, above Smelter Avenue is the large Riverview
Residential area.

Figure 2 shows the land use in more detail. It
also shows the location of schools and churches as well
as various public buildings. The 1990 Comprehensive Plan
of the Great Falls City-County Planning Board projects
no major change in this land use.

Gibson Park is a recreational park of 60 acres with
ball fields, playground equipment, a bandshell, flower
and rock gardens and a lake with various waterfowl. At
the northeastern most end of the park is located the
headquarters of the park system with greenhouses, storage
sheds and the park bird winter quarters. Across 6th
Street North from the headquarters site is a small area
of park land with two metal storage buildings. No
additional new facilities are planned at this time.

Park officials estimate that some 7500 persons per
week visit the park with many tourists using the facilities

•3-

during the summer months. Park Drive runs the full
length of the park and provides ready access.

The park is owned by the City of Great Falls and
is considered by the officials of that city as a
significant element in their community's culture.
Planned by Paris Gibson and the City Founders, it is
the oldest park in the city system.

River Drive Park is also a recreational park.
Some 40 acres in size it has two tennis courts, horse-
shoe pits, playground equipment, small shelters and
facilities for picnicing. There is also a facility
for use by the Girl Scouts and the Campfire Girls.
The tennis courts are located some 200 yards southwest
of the 6th Street Underpass with all the remaining
facilities located between there and the Broadwater
Bay area, south of the Central Avenue Bridge. There
are no facilities existing or planned for the area
between the 6th Street underpass and the 10th Street
Bridge.

An estimated 8500 persons per week use this
facility, again, with many tourists using these
facilities during the summer months. River Drive
runs the length of the park and provides easy access.
The park is owned by the City and its location is
consistent with the communities land use development.

•4-

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DEPARTMENT OF TRANSPORTATION
FEDERAL HlfiHWY ADMINISTRATION

PREPARED BY S I A ! E DOCU tfi EN \6

MONTANA HIGHWAY COMMISSION

DRAFT

tnv l Kl -1 J. Itti I ^.L/^t-.U I llir. HAFJ MAItHtUI STATE DOCUMENTS COLlECTlQfi

ADMINISTRATIVE ACTIOf

FOR ^30 E- Lynoaie

Helena, Montana.- 5S

MISSOURI RIVEP BRIDGE R APPROACH ROADS
f.ITY OF GREAT FALLS, MONTANA

nrniRI

THIS HIGHWAY IMPROVEMENT IS PROPOSED FOR FUNDING UNDER TITLE 23, U.S.C.
THIS STATEMENT FOR THE IMPROVEMENT WAS DEVELOPED IN CONSULTATION WITH
THE FEDERAL HIGHWAY ADMINISTRATION AND IS SUBMITTED PURSUANT TO J

SECTION 102(2) (C)
PUBLIC LAW 91-190

Afjfl MONTANA „ * ■■

930 East tyndaie Avenua
SECTION *!(f) Helena, Monfana 5960!

PUBLIC LA!-! 89-*70

DATE SIGNATURE

CLEARED BY FEWA FOR CIRCULATION AND COMMENTS

DATE 7 7 SIGNATURE ^ ? '^

As mentioned earlier the Park Board has designated
Squaw Island as a bird refuge. There is no development
on the island and the only access is by boat. A portion
of the island is flooded annually and totally submerged
during years with high runoff.

ALTERNATES UNDER CONSIDERATION

Alternate AI :

This alternate connects with the 6th Street North -
7th Street North one way couplet, passes under the C. M.
St. P. & P. Railroad and the B. N. Railway tracks at the
present location of the 6th Street Underpass, and inter-
sects with River Drive. The bridge extends 23 80 feet
across the river in a north easterly direction over
Squaw Island and across the B. N. tracks on the north
bank. The northern terminous consists of a modified
trumpet interchange with U.S. 87 bypass and Division
Road.

Its projected traffic volume for the design year
1990 is 19,600 vehicles per day. This is the highest
volume of all the alternates. The projected 1975 volume
is 18,032. Traffic on Central Avenue Bridge and 15th
Street Bridge is most closely balanced by this alternate „
and there is a good utilization of the existing street
system. Being the longest bridge it also has the
highest initial cost, $6,150,000.

•5-

Studies show an annual saving to the road use of
$252,945 for this alternate over the existing faci ity,
Due to the existing 6th Street underpass extensive
reworking of the area would not be necessary with
this alternate. As a result it has a lower, flatter
profile than the other alternates.

On the north side of the river, approximately
10.73 acres of right of way (R/W) would have to be
acquired from public and private ownership with 4.8 2
acres of this in public land and not subject to taxa-
tion.; The southern R/W would require approximately
0.91 acres of park land and 0.31 acres of private
land. However, vacation of existing roadway would
add approximately 0.47 acres to the park land, thus
reducing the net loss to the park to approximately
0.44 acres, 0.07 of which would come from Gibson
Park. Some 0.98 acres of R/W would be needed across
Squaw Island.

Two metal storage buildings belonging to the
park would have to be relocated. Presumably they
could be moved across 6th Street onto a portion of
the vacated roadway, thus consolidating the park
headquarter facilities. There would be no acquisition
or relocation of residential or commercial buildings.
The total estimated cost of R/W for this alternate
is $422,236,

■6-

Alternate Cl :

Connecting with the 8th Street North - 9th Street
North one way couplet on the south, this alternate
crosses under fehe C. H. St. P. & P. Railroad and the
B. N. Railway tracks midway between the 6th Street
underpass and the 10th Street Bridge, then intersects
with River Drive. The bridge extends 1800 feet across
the river in a north easterly direction, over the
sewage treatment plant, and across the B. N. track
on the north bank. The northern terminus consists of
a split roadway with two lanes running north to inter-
sect with Smelter Avenue at 6th Street N.E. and four
lanes running west to intersect with U.S. 87 bypass at
Division Road.

The projected traffic volume for this alternate
is 19,400 vehicles per day, the second highest of the
alternates. Its projected 1975 volume is 17,848.
Traffic is balanced on the Central Avenue Bridge and
the 15th Street Bridge and there is good utilization
of the existing street system on the south. On the
north however, while the end connectors are good,
there is the undesirable feature of 2 four lane roadways
running parallel.

The estimated initial cost of this facility is
$5,518,000. An annual savings of $249,945, would accrue
to the road user with this alternate over the existing

■7-

facility. Due to the decreased elevation of the B. M.
Railway and the C. M. St. P. & P. Railrod tracks at
Alternate Cl there is a rather deep cut necessary,
with a 5 percent grade in and out, for the roadway
to pass beneath the railroad tracks. A somewhat
higher structure than at Alternate Al would be required
but it would also be about 580 feet shorter.

Approximately 8.02 acres of R/W would be required
from private ownership on the north of the river and
and additional 0.80 acres from public ownership. This
represents a considerable conflict in that it is an
area where the proposed multi-million dollar sewage
treatment plant expansion will be.

On the south side of the river approximately
4.04 acres of R/W would be required of which some
0.52 acres would be park land.

Four commercial and industrial buildings and
two mobile homes would have to be acquired or moved
on the north bank. On the south bank a major gas
line facility would be crossed and nine commercial
and industrial buildings would have to be acquired.
The total estimated R/W costs for this alternate is
$851,243.

-8-

Alternate D:

Alternate D also connects to the 8th Street NTth -
9th Street North one way couplet. It passes under the
B. N. Railway and the C. M. St. P. & P Railroad tracks
at about 9th Street and connects with River Drive. The
bridge extends 1465 feet across the river and over the
B. N. Railway tracks on the north bank. The northern
t.erminus is the existing Smelter Avenue r -10th Street
intersection.

The 1990 traffic volumes for Alternate D are
projected to be 15,100 and for 1975, 13,890. Traffic
on the 15th Street and Central Avenue Bridges is un-
balanced to the point where the capacity of the Central
Avenue Bridge facility is expected to be exceeded well
before the design year. The connections on both the
north and south sides make good use of the existing
street system. However, due to the grade separation
North River Road would be closed to through traffic,
thus rerouting some 6000 vehicles per day, 1990 traffic.
Initial cost for Alternate D is estimated at $5,230,000.
Against the existing facility, road user savings would be
$130,670 annually.

A deeper cut is necessary on the south side to allow
the roadway to pass beneath the B. N. Railway tracks. Also,
it requires a higher, although shorter structure.

»9-

This alternate would require approximately 0.96
acres of R/W north of the river from the oil refinery
and a gas transmission facility belonging to Montana
Power. South of the river some 5.62 acres would be
needed of which about 0.7 acres would be park land.

Extensive relocation of buildings and piping
would be necessary at the oil refinery. Ten structures,
industrial and commercial, would have to be acquired
south of the river. Estimated R/W costs for Alternate
D is $1,143,000.

Alternate Dl :

This alternate is basically the same as Alternate
D but with an at grade rairoad crossing on the north
bank rather than a grade separation. This allows through
traffic to use the North River Road. As a result some
of the vehicles using 10th Street Bridge shift over to
the 15th Street Bridge dropping the total vehicles per
day to 12,600 for Dl in 1990 and 11,700 in 1975. These
are the lowest volumes of all the alternates.

Traffic is still unbalanced on the Central Avenue
and 15th Street Bridges with an overload situation on
Central . Everything about the south bank in the
description of Alternate D applies to Alternate Dl.

-10-

On the north bank the conflict with the petroleum
refinery is eliminated and R/W requirements drop to
some 0.38 acres. Thus R/W costs are reduced to an
estimated $571,559. This, plus a lower, shorter
span, 1210 feet, provides the lowest initial cost
of $4,088,000. Annual road user savings would be
$62,415 against the existing facility.

In addition to the preceeding alternates several
other alternates were considered and, after study,
rejected.

Alternate A connected with the 4th Street North-
5th Street North one way couplet on the south, passed
under the railroads at the park headquarters, crossed
Squaw Island and intersected with U.S. 87 bypass at
Division Road. This alternate had two serious objections,

First was the fact that it required relocation of
park headquarters. In addition the north connection
required a sharp turn and steep grade in order to allow
for a grade, separation with the B. N. tracks. It was
therefore eliminated from consideration.

Alternate B connected with the 6th Street North -
7th Street North one way couplet on the south, passed
under the B. N. tracks in the area of 6th Street North
extended, crossed the river at the eastern most tip of

-11-

Squaw Island and intersected with U.S. 87 bypass

at Smelter Avenue. It was dropped from considerat .on

due to this undesirable intersection.

Alternate C was essentially the same as Alternate
CI previously discussed. However, rather than a split
roadway at the north this alternate ran directly into
the U.S. 87 bypass - Smelter Avenue intersection. As
with Alternate B, ■ Alternate C was removed from consider-
ation due to this undesirable intersection.

Probable Impact

It is not anticipated that this project will have
any major adverse environmental consequences on the
area. Quite the contrary is true. Considerable benefit
should be accrued by the community with the construction
of a new bridge within the corridor. The existing 10th
Street Bridge has had a weight limit imposed upon it,
and as a result ther has been a substantial reduction
in its volume. With the eventual elimination of this
bridge the city would in fact become more divided by
the river. An improved means of crossing this barrier
would encourage more uniform development of the area in
agreement with the projections of the City-County
Planning Board. Further, the simplification of dealings
between the people from each side of the river would
create a more cohesive community.

-12-

On the other hand the "do nothing" alternate would
have the opposite affect. As the river crossing b< came
more difficult due to congestion on the remaining bridges,
alternatives to crossing would become more desirable.
Thus the river would have a divisive effect on the area
creating separate communities on either side of the
barrier.

Unavoidable Adverse Effects

There are some unavoidable adverse environmental
effects which will occur regardless of the alternate
selected. These would be the increasing traffic on
the street systems to which they cdnnect and the
crossing of River Drive Park land which runs along
the south bank of the river through the study area.

Since the north connections of the various alter-
nates are with major traffic arteries no problem is
foreseen with an increase of traffic there. On the
south, however, connecting streets are predominantly
residential in nature with varying amounts of commercial.

As discussed earlier in the descriptions of the park,
activities in River Drive Park are confined to an area
west of the 6th Street underpass to and beyond Central
Avenue Bridge. There is no development existing or
proposed, with the exception of some beautif ication
projects, in the area between the 6th Street underpass

-13-

and the 10th Street Bridge. There is a sewage lift
station in the area which would be unaffected by the
alternates.

In addition to these general effects there are
some adverse effects attendant with the specific
alternates .

Alternate Al , in addition to the traffic increase
previously mentioned, will increase traffic on Park
Drive as traffic from the bridge flows toward the
central business district. Park Drive is the main
thoroughfair paralleling Gibson Park. This Park
would be further affected by Alternate Al with the
necessity of relocating two storage buildings and
the taking of approximately 0.07 acres of land.

Open space is a commodity rapidly vanishing in
our big cities. The area along the river between
Central Avenue Bridge and 10th Street Bridge represents
a large open area which is readily accessible to most
residents of the community. The effect Alternate Al
has in limiting this area is adverse and would be
unavoidable.

And lastly this alternate crosses Squaw Island.
As was discussed earlier this island is designated as
a bird refuge by the Park Board.

■14-

Alternate CI also has a limiting effect on the
open space within the study area. However, as can
be seen in figure 1 the effect would be less than
that of Alternate Al.

Whitter Elementary School is located on 8th
Street North between 3rd and 4th Avenues North.
Traffic would be increased past this shcool with
Alternates Cl, D, and Dl.

Alternate Al would require some 0.07 acres from
Gibson Park and 0.37 acres of River Drive Park, or
0.44 acres total park land. Two structures would
also have to be relocated. Alternate Cl would take
approximately 0.52 acres of park land while Alternates
D and Dl would require about 0.70 acres of park land.

Each of the alternates are sufficiently removed
from the park use areas that there should be a minimum
of increase in physical effects upon park users. The
park areas would be more accessible to traffic from
north of the river, both vehicular and pedestrian.
Access to the River Drive Park area from the south
would be improved while Gibson Park would be unaffected.
Steps taken to minimize the effect of crossing park land
would include but not be limited to:

1. The design of approaches with as flat a
slope as is practicable.

-15-

2. Esthetic considerations during the architectural
design of the bridge

3. The use of a landscape architect during the
planning.

Long Term Vs Short Term Considerations

As has been discussed previously the long tern;
value of this project v/ould be the effect of drawing
the community closer together and the more orderly
development of the area. By comparison the resultant
change in traffic patterns, and the removal of the
necessary trees and buildings would be of little con-
sequence.

Irreversible and Irretrievable Commitment of Resourc es
The growth of the city represents an irreversible
and irretrievable commitment of resources but this is
an inevitable commitment which this project only encour-
ages. In this instance, the bridge acts not as a
catalyst but as a means of direction.

This is a draft environmental statement. Four
alternates, Al , CI , D and Dl are under consideration.
A specific alternate will be selected by the Montana
Highway Commission following a public hearing.

-16-

Alternate A1

Alternate CI

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Alternate CI conta*

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Alternate D

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Alternate D1

RESIDENTIAL

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V%&7?2 INDUSTRIAL

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PARKS & RECREATION
CHURCH

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SCHOOL

FIGURE 2

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FORREST H. ANDERSON

raS 5£-SJ3f32SPw55«*5*I'JW G O V E fl N O R

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Montana Highway commission

HE: LENA. MONTANA 59601

October 22, 1971

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Montana Department of Planning & Economic

Development.
Attention: Perry^F. Roys j Executive Director
Capitol P.O.
Helena, Montana 59601

LI WIS M. CHITTIM

STATi HIGHWAY ENGINEER

39-JGS

IN REPLY REFER TO:

U 149(26)

Tenth Street Bridge

Study
Great Falls

Gentlemen:

In compliance with Section 102(2) (C) and Section 4(f) of the National Environ-
mental Policy Act of 1969 , the Montana Highway Department has prepared a Draft
Environmental and 4(f) Statement for the subject project

Under provisions of the law, it is requested that your agency review the en-
closed statement and furnish this office with your comments within 43 days Iron
the date of this letter.

Specific comments are requested from certain agencies shown on the attached
distribution list. Comments from other agencies are requested as their exper-
tise warrants.

The required summary sheet to accompany this statement follows :

Very truly yours,

LEWIS M. CHITTIM, P.E.,
State Highway Engineer

39-GOP/JGS/lk

By <<£v/ . / );-•' y/ujL

J _,-.- J » 1 *-K~~ —

iM/'Grover 0. Powers, P.E.,
y Preconstruction Engineer

CH. CHAIRMAN

jON, v;ck chairman

G. R COONEY

WILLIAM M, KCSSNEf?

fit -\i."-K HA (,;l e

R. C. COFFEY

W O L F f'OINT

K©S*S**««*Sg» l «j&flffiCTJSj!J^^

JOHN O. WHEELER, sccrttary
hi: Li NA

SUMMARY SHEET

ADMINISTRATIVE ACTION

COMBINED DRAFT ENVIRONMENTAL/SECTION 4(f) STATEMENT

MISSOURI RIVER BRIDGE & APPROACH ROADS
. CITY OF GREAT FALLS, MONTANA

Environmental impacts for all alternates would be a
more uniform development of the area, the creating of a
more cohesive community, increasing traffic on predomi-
nantly _ residential streets, and the crossing of park land.
In addition two alternates limit open space to a lesser or
greater degree and one alternate crosses a bird refuge.
And lastly three of the alternates would increase traffic
past an elementary school.

There are four alternates under consideration, referred
to as Al, CI, D and Dl in this report.

Al is 2300 feet long, carries 19,600 vehicles per
day, 1990 traffic, and costs an estimated $6,150,000.
Annual road user savings, Al versus the existing facility,
$252 , 945 .

CI is 1800 feet long, carries 19,400 vehicles her
day and costs $5,518,000. Annual road user savings",
$249,945.

D is 1465 feet long, carries 15,100 vehicles per
day and costs $5,230,000. Annual road user savinqs,
$130,670. y

Dl is 1210 feet long, carries 12,600 vehicles per
day and costs $4,088,000. Annual road user savinqs,
$62,415. ~ y

This statement was made available to the CEQ and the public on
October 22, 1971.

DISTRIBUTION LIST FOR THIS STATEMENT

STATE AND LOCAL AGENCIES SPECIFIC
COMMENTS REQUESTED:

Montana Fish and Game Department Re:

Attention: Frank Dunkle.. Director
Mitchell Building
Helena, Montana 59601

Montana State Conservation Commission
Attention: O.M. Uland, Executive Secretary
Room 224

Mitchell Building
Helena, Montana 59601

Montana Department of Planning & Economic Development
Attention: Perry F. Roys, Executive Director
Capitol P.O.
1716 9th .Avenue
Helena, Montana 59601

Montana Council of Natural Resources & Development
Attention: Richard E. Mayer, Landscape Architect
Room 420 Mitchell Building
Helena, Montana 59601

Montana Water Resources Board
Attention: Douglas G. Smith, Director
Mitchell Building
Helena, Montana 59601

State Counci of Natural Resources
Attention: George T. McGaff'lck, Coordinator
Mitchell Building
Helena, Montana 59601

Squaw Isle ad Bird
Refuge

State Department of Health
Cogswell Building
Helena, Montana 59601

Environmental Quality Council

Attention: Fletcher Newby, Executive Director

Capitol Building, Room 366

Helena, Montana

City Council
Civic Center
Great Falls, Montana

59401

*.^'

STATE & LOCAL AGENCIES, Cont'd

Board of Park Commissioners

City Park Department

Great Falls, Montana 59401

City County Planning Board

Civic Center

Great Falls, Montana 59401

Sewer and Water Department

Civic Center

Great Falls, Montana 59401

STATE AND LOCAL AGENCIES SPECIFIC
COMMENTS REQUESTED

Re: Parks Involved

Re: Your planning

Re: Alternate CI crossing
of treatment plant

Mr. Lou Fontana
City Engineer
Civic Center
Great Falls, Montana

59401

The Honorable John McLaughlin

Mayor

City of Great Falls

Great Falls, Montana 59401

Board of County Commissioners

Cascade County

Great Falls, Montana 59401

Mr. Robert Myklebust

Traffic Engineer

Civic Center

Great Falls, Montana 59401

Re: Traffic patterns, etc.

FEDERAL AGENCIES

Department of Housing and Urban Development

Oscar P. Pederson, Regional Administration X

Attention: Environmental Clearance Officer

Room 226

Arcade Plaza Building

Seattle, Washington 98101

Department of Interior
Deputy Assistant for Programs
Washington, D.C. 20240

Environmental Protection Agency

1200 6th Avenue

Seattle, Washington 98101