20100752_Environmental Assessment_19930819

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Other Alternatives Considered Section
From the 1993 Environmental Assessment for
R-2237 - US 321 Improvements
August 6, 1993

2.3 OTHER ALTERNATIVES CONSIDERED
Other alternatives considered were three minor alignment changes, placement of the two new
lanes on the opposite side of US 321 from that proposed (location alternatives), a Blowing Rock
Bypass, an improved two- or three-lane road, redesignation of US 321, postponement of the
preferred alternative, and use of alternative mode of transportation. A general look at each
alternative's opportunities and difficulties was made. The findings of these general studies are
presented below.
2.3.1 Minor Alignment Changes
Several minor alignment changes were evaluated early in the studies. The location of these
alignment changes are shown in Figure 2-3. Comparisons of these alignment changes are
presented in Alternative Study & Evaluation Technical Memorandum (Parsons Brinckerhoff
Quade & Douglas, Inc., August 1990 as amended September 1991). The findings of this
comparison are summarized below.
Patterson Area Alignment Alternatives
These minor alignment alternatives were examined to determine if displacement in the
Patterson area could be reduced by realigning US 321. It was found that:
Displacement would be somewhat less with the realignment alternatives (three to
four homes and two businesses less).
Construction costs, however, would be much greater with the realignment
alternatives, $4.6 to $5.2 million versus $2.7 million.
The difference in the number and approximate value of the reduced relocations did not
merit the additional cost of shifting the alignment. Therefore, this alternative was dropped
from further study.
Yadkin River/Preston Creek Area Alignment Alternatives
These minor alignment alternatives were examined to determine 9 wetlands impacts in
the Yadkin River/Preston Creek area could be reduced by realigning US 321.
Alternatives Assumptions. Two alternatives were selected for comparison: widening
to the west of the existing road and building two new lanes east of the Yadkin River.
A five lane cross section is planned in this area with the preferred alternative. A 46-foot
median was not examined in recognition of the potential for wetland impacts. The
earthwork reduction considerations on either side of this section were a factor in deciding
to use a five lane section. The fifth lane would provide for continuous left turns onto side
roads and driveways, which occur at regular intervals along this section of US 321. Thus,
a four lane cross section would not be practicable.
For the two lanes east of the Yadkin River, a bridge structure was assumed for the two
new Yadkin River crossings in order to reduce effects to the river, both in terms of water
2-26
LEGEND:
Alternative Alignments
Figure 2-3 Minor Alignment Change Alternatives
quality and its value as wildlife habitat. A primary concern was the maintenance of flow,
and retention of a natural stream bottom for trout and other aquatic species. The use of
a bridge structure would leave the natural stream bottom.
Widening to the east to reduce wetland impacts was not considered because it would
have necessitated a channel change. A channel change was considered to be an
unacceptable alternative if there was an opportunity to avoid it because of:
• The significant disturbance of aquatic habitat.
• The uncertainties involved in restoring that habitat and aquatic wildlife.
• The uncertainties involved in assuring a new channel functions well
hydrologically.
• The need to monitor the area to confirm aquatic wildlife is reestablished and to
retrofit the project N it is not reestablished.
Alternatives Comparison. It was found that building two new lanes east of the Yadkin
River would substantially reduce wetland impacts, 0.1 acres would be removed versus
1.2 acres. It would, however:
Have substantially greater costs than widening construction costs, $3.9 million
versus $1.2 million.
Increase community impacts by introducing two highway lanes in front of three
homes now separated from US 321 by the Yadkin River. It would use the limited
bottom land these homes now enjoy, cut off their access to the Yadkin River, and
increase noise levels. The loss of bottom lands could necessitate the purchase
of the full property and the displacement of the residents. Displacement of a
commercial property would be required. The widening alternative would require
displacement of two single family dwellings.
• Add two new crossings of the Yadkin River.
• Require additional flood plain encroachment (approximately 3.1 acres versus 0.2
acres) and other flooding impacts.
Since building two lanes east of the Yadkin River would involve greater community and
other natural systems impacts, and the flat bottom land that surrounds the wetland
affected by the widening could be used to create replacement wetlands, it was
determined that this alternative was not practicable. The widening alternative was
incorporated into the preferred alternative.
Blowing Rock Area Alignment Alternative
A minor alignment change alternative was considered in Blowing Rods as a means of
moving US 321 away from the National Register-listed Green Park Inn. This comparison
was made early in the study process and prior to the identification of the Green Park Inn
area as a National Register-eligible historic district. It was found that:
• The construction cost of a new alignment would be significantly greater than that
for widening along existing US 321, $14.7 million versus $1.5 million because
part of the new alignment would need to be built on a bridge structure.
2-28
Highway traffic would be introduced to a residential area that is now served by a
local street.
Views from several homes along US 321 would be adversely affected.
In addition, both alternatives would be within the National Register-eligible Green Park
Historic District. The realignment would require the widening of a local street that passes
in front of five structures that contribute to the district and would pass through a golf
course hole that was a part of the original Blowing Rock Country Club course, another
contributing element to the Historic District.
Thus, it was concluded that widening along existing US 321 was preferable to the minor
realignment change. Alternatives to widening US 321 through the Historic District that
either avoid its use or minimizes impacts are discussed in Chapter 4, "Section 4(f)
Evaluation."
2.3.2 Location Alternatives
Along the preferred alternative the proposed improvements occur east, west, or on both sides of
the existing centerline. The preferred location was selected at various locations along the
alignment to reduce displacement, reduce and balance cuts and fills, avoid natural and cultural
features, and improve road curvature. Table 2-2 identifies the preferred widening treatment along
the preferred alternative.
2.3.3 Blowing Rock Bypass
The feasibility of a Blowing Rock bypass was assessed as an aRemative to widening US
321 within the Green Park Historic District. The bypass corridors examined are shown in
Figure 2-4.
The bypass study was done in three parts:
1. A general screening of a long list of location options.
2. Conceptual engineering and cost estimates for a single most reasonable
alignment.
3. Comparison with the widening alternative.
Based on this assessment, an alignment following the top of the ridge line east of
Bowing Rods and tuming northwest to return to existing US 321 prior to the Blue Ridge
Parkway (Ridge TopJNorth Blowing Rods route) was found to be the most reasonable
location for a Blowing Rods bypass (in comparison to other potential bypass locations)
because it would:
Involve the least amount of new lane-miles.
Involve the least construction in severe terrain (terrain with potential for grades
greater than eight percent or cuts and fills greater than 50 feet high).
2-29
Blue Rldoo _
N
A
Scale in Miles
Legend
East Blowing Rock Corridor
Bailey Camp/Blackberry Valley Corridor
_ Far South and East Corridor
Representative Routes
0 1
_Wataug_a Co
--
Caldwell Co._--__---_---
own Cif tS .
• Avoid crossing the Blue Ridge Parkway and would be in view from the Blue
Ridge Parkway for only a brief period of time or perhaps not at all, thus avoiding
use of this 4(f) resource.
Its potential for natural resource impacts also would be among the lowest of the
alternatives considered (44 acres of wildlife habitat lost). It would, however, have the
greatest potential for impact to urban and rural communities, including both displacement
and the introduction of highway traffic to urban and rural communities not now affected by
such traffic. Urban community impacts could have been reduced by moving the route
down onto the side of the ridge (Ridge Slope/North Blowing Rock route). With such a
route, however, the amount of severe terrain involvement would increase by 41 percent
(in terms of new lane miles).
In comparison to the preferred alternative, it was found that the most reasonable bypass
alternative:
• Its construction and right-of-way cost would be far greater than that of the
widening alternative ($23.3 million versus $11.3 for the widening).
• The area of new right-of-way required would be far greater than with the
widening alternative (56.6 acres versus 18.6 acres).
• The potential for community disruption would be greater than with the widening
alternative since highway traffic would be introduced to Blowing Rod's Green Hill
neighborhood and several other concentrations of development.
• Displacement would be greater (23 homes and one business versus 12 homes
and five businesses).
Long List Screening
Selection of Alternatives. Bypass alternatives fell into three general corridors: East
Blowing Rock, Blackberry Valley, and Far South and East. (See Figure 2-4.) The option
of returning to US 321 prior to the Blue Ridge Parkway was considered in the screening.
"Representative routes" were selected to provide a basis for comparing basic approaches
available for placing a bypass within each corridor. (See Figure 2-4.) The routes were
used to generate data for comparison and were not assumed to represent specific
alignments or rights-of-way. Additional alternatives analysis would be required to
determine specific alignments or right-of-way. For the East Blowing Rods Corridor, four
representative routes were examined. They are:
• Ridge Slope/Blue Ridge Crossing.
• Ridge Top/Blue Ridge Crossing.
• Ridge Slope/North Blowing Rods.
• Ridge Top/North Blowing Rods.
2-31
They are the four potential combinations of:
• Following the slope of the ridge east of Blowing Rock.
• Following the top of that same ridge.
• Crossing the Blue Ridge Parkway to return to existing US 321.
• Returning to existing US 321 south of the Blue Ridge Parkway.
This final factor, avoiding a crossing of the Blue Ridge Parkway, was important to the
analysis since the Parkway is a Section 4(f) resource as a park and possibly as an
historic resource eligible for inclusion in the National Register of Historic Places. Under
Section 4(f) of the Department of Transportation Act of 1966, a federally funded highway
project cannot "use" lands directly or indirectly (constructive use) unless it can be
demonstrated that there is no feasible and prudent alternative to the use. It is only in the
East Blowing Rods Corridor that a representative route that did not cross the Parkway
was considered. In the other corridors, severe terrain and distance from existing US 321
in Blowing Rock precluded consideration of routes that did not cross the Parkway.
A single representative route following Blackberry Valley from Bailey Camp was
examined for the Bailey Camp/Blackberry Valley Corridor. For the Far South and East
Corridor, the tradeoffs involved with following a river valley versus a ridge line were
examined.
Comparison of ARernatives. Table 2-7 presents a comparison of the long list
alternatives and the planned widening utilizing the following tradeoffs criteria:
• Engineering constraintstpotential cost measures.
Length of construction (miles of new road, widening, and new lanes).
- Severe terrain (distance in miles of new road, widening, and new lanes
with a potential for grades greater than eight percent or earthwork
greater than 50 feet high).
Number of new, and widened or replaced, bridges.
• Community impact potential
Change in travel distance (travel distance along a bypass minus travel
distance along the existing road).
Potential effect on urban neighborhoods or rural communities.
- Potential displacement.
Relation to the Blue Ridge Parkway, a Section 4(f) and possibly a
Section 106 resource.
Other community issues not reflected above.
2-32
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Natural resource impact potential.
Potential for forest habitat loss and wildlife impact (distance in miles of
new road, widening, and new lanes through forested areas).
Potential for water resources impacts, including impacts to water quality,
floodplains, and wetlands (distance in miles of new road and widening
closely following streams)
Other terrestrial and aquatic resource issues not reflected above.
New lane miles assumed "new road" is four new travel lanes and "widening" is two new
travel lanes.
The following general trends can be observed in Table 2-7:
Length of Construction. If the length of new road is added to the length of
widening, the length of construction varies on a narrow range (7.3 miles to 10.6
with the widening only being 8.0). This is because the bypass alternatives tend
to follow a northerly route, where the existing road moves to the northwest to
Blowing Rock and then goes back to the northeast to Boone. The big differences
begin to occur when the state's intrastate corridor objective of building a four lane
road is taken into account. When the number of new lane miles were counted, it
was found that the shorter the section of new four lane road, the less new
construction is required. All the alternatives would meet the objective of a
bypass, taking US 321 traffic out of the midst of Blowing Rock. The shorter
alternatives accomplish this objective with less new construction and related
impacts.
• Severe Terrain. Severe terrain would be encountered with all of the bypass
aftematives. Extensive earthwork would be required to achieve minimum grades.
Whether one is looking at it in terms of length alone or in lane miles, as the
length of bypass construction increases, the extent of severe terrain encountered
increases.
• Number of Bridges. The number of bridges crossing streams increases with the
length of bypass.
• Change in Travel Distance. For reasons noted in "Length of Construction"
above, the distance traveled by US 321 traffic would generally decrease with the
bypass alternatives.
• Neighborhoods/Communities Affected. All of the bypass aftematives would
introduce highway traffic to communities through which such traffic does not now
pass. The greatest potential for such affects occurs with:
The East Blowing Rock routes that follow the ridge top and pass through
Blowing Rock's Green Hill neighborhood and several other
concentrations of development.
The Bailey Camp/Blackberry Valley route and Far South and East river
valley route where they pass through the Blackberry Valley community.
2-36
With the widening project, highway traffic would remain in the communities
through which it now passes.
In addition, with the East Blowing Rock ridge top routes, highways would be
along part of both Blowing Rock ridge lines, reducing the availability of land with
valley views for private homes and non-highway related public overlooks.
• Displacement. All of the bypass alternatives would involve some displacement in
the communities through which they would pass. The greatest potential for
displacement is on the East Blowing Rock ridge top route.
• Relation to the Blue Ridge Parkway. Only the widening project and two of the
East Blowing Rock routes avoid crossing the Blue Ridge Parkway. No
constructive use is expected with the two East Blowing Rock routes since they
would be in view from the parkway only briefly or perhaps not at all.
• Forest Habitat Lost/Wildlife Impact Potential. As the length of bypass
construction increases, the extent of forest habitat lost and the wildlife impact
potential increases. In the East Blowing Rock Corridor, the ridge top and Blue
Ridge crossing routes have the greater potential for forest habitat loss.
• Water Resources Impact. Only routes in the Bailey Camp/Blackberry Valley and
Far South and East Corridors closely follow streams. The Bailey
Camp/Blackberry Valley and river valley routes would both closely follow the
Yadkin River for several miles.
• Other Natural Resource Issues. A route in the Bailey Camp/Blackberry Valley or
Far South and East Corridors would increase the potential for degrading water
quality in the Yadkin River watershed because of the numerous new river
crossings and by introducing a highway to the rural portion of the watershed, thus
increasing the potential for urban development. An East Blowing Rock route
would also have new stream crossings.
Evaluation of Aftematives. Table 2-8 presents the evaluation of the long list
aftematives using the classification described earlier. It also indicates the most
reasonable bypass aftemative.
The tradeoffs findings for the representative routes that were presented in Table 2-7 are
evaluated in Table 2-8 using a four part classification system. The first three
classifications are relational. They identify from greatest to least, the relative potential for
engineering constraints, costs, and impacts for each tradeoff. As a relative measure,
they do not necessarily reflect impact extent or significance, both absolute measures.
For example, at locations where "least constraints/costrmpacts" were identified, it should
not be assumed that there is no potential or minimal potential for environmental impacts.
The designation of "least" only indicates that the potential for impact is less for this
alternative than the other alternatives being evaluated. The focus on relative measures
in the evaluation was considered to be the most reasonable approach in light of the long
list evaluation's objective of selecting the "most reasonable bypass alternative" and the
general nature of the tradeoffs measures used in the screening of the long list. The
fourth classification used is an absolute measure indicating if an alternative had
unreasonable engineering constraints and potential cost. This measure reflects
NCDOTs desire to meet the travel needs of North Carolina in a cost-effective manner.
2-37
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2-38
The following can be seen in Table 2-8:
As could be seen in Table 2-7, all of the aftematives would face significantly
more severe terrain than the widening alternative. The Bailey Camp/Blackberry
Valley and Far South and East routes would require a significantly greater
number of bridges. These two factors all translate into significantly higher cost
than the widening alternative. The two bypass alternatives not listed as
unreasonable (the two East Blowing Rock ridge top routes) are the two bypass
aftematives that would face the least amount of severe terrain. The severe
terrain involvement in terms of lane miles is however, 2.3 times that of the
comparable segment of the preferred widening altemative. The two East
Blowing Rock ridge slope routes (the next lowest in terms of severe terrain
involvement) would have a severe terrain involvement 3.2 to 3.4 times the
widening alternative.
The East Blowing Rock ridge slope routes would offer the least potential for
environmental impact. The Bailey Camp/Blackberry Valley and Far South and
East routes have the greatest potential for natural resource impacts. The East
Blowing Rock ridge top routes have the greatest potential for community impacts.
Based on the above, a Ridge Top/North Blowing Rock route was found to be the most
reasonable bypass alternative. This route, however, would involve substantial
displacement and the introduction of highway traffic to existing urban and rural
communities.
Comparison of the Preferred Alternative and
Most Reasonable Bypass Alternative
Further engineering studies were completed for the most reasonable bypass altemative,
shown in Figure 2-5. Basic construction quantities and right-of-way areas were
determined for both the most reasonable bypass altemative and the comparable segment.
of the preferred alternative. Cost estimates were developed based on these quantities.
Table 2-9 compares the two alternatives. The distance compared is the distance
between the bypass afternative's two junctures with US 321. The longer length used
when comparing the long list of aftematives is no longer needed since the longer bypass
aftematives are not a part of this comparison. The bypass alignment was refined based
on more detailed engineering studies during the development of construction and right-of-
way quantities, thus some of the numeric findings in Table 2-9 differ from those
presented in Table 2-7.
The following can be observed in Table 2-9:
Lenoth and Area of Construction. The total length of the two aftematives is
approximately equal, with the widening being about 0.4 mile longer. This is
because the bypass altemative tends to follow a northerly route, where the
existing road moves to the northwest to Blowing Rock and then goes back to the
northeast to Boone. The bypass alternative would require the construction of a
new four lane highway, with a substantial increase in the, amount of right-of-way
required. The right-of-way required would be approximately three times greater
with the bypass (56.6 acres versus 18.6 acres).
Cost. Construction and right-of-way costs would be far greater for the bypass
alternative, $23.3 million versus $11.3 for the widening. -
2-39
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Figure 2.5 "Most Reasonable" Blowing Rock
Bypass Alternative
Table 2-9
Comparison of Blowing Rock Bypass and Preferred Alternative(1)
Tradeoffs
Engineering Charac terisdes/Cost
• Length
Ridge Top/Norrh
Blowing Rock Bypass Preferred Altemadve
- Miles 2.1 2.5
- New lane mdes(2) 8.4 5.0
• New Right-of-Way (acres) 56.6 18.6
• Cost
- Constriction $12.4 million $ 5.4 million
- Right-of-way 10.9 million 5.9 million
Total $23.3 million $11.3 million
• Excavation 22 million cubic yards 02 million cubic yards
(2.0 million cubic yards wasted)
Change In Travel Distance (in miles) -0.4 0.0
Potential Community impacts
• Neighborhoods/ Highway introduced to Highway traffic remains in
communities Green Hill neighborhood communities through which
affected in Blowing Rods and rural it now passes.
communities at north end.
• Displacement 23 SFD(3);1 business 12 SFD(3); 5 businesses
• Relation to Blue Parallel, in view only Project ends before
Ridge Parkway(4) briefly, ff at all. reaching Parkway.
• Other community Highways would be along All future traffic growth
Issues both Blowing Rods ridge will pass through Blowing
lines. Rock
Potential Cultural Resource Impacts None Green Park Historic District
Potential Natural Impacts
• Forest habitat lost/wildlife 44 acres 10.4 acres (urban trees)
impact (habitat fragmented)
• Closely follow streamiwater 0.0 0.0
resource impact (distance in miles)
• Stream crossings (number) 0 0
(1) Compares the distance between the bypass alternative's two junctures with US 321. The longer length used
when comparing the long list of altematives is no longer needed. A refined bypass alignment, based on more
detailed engineering studies, is also used. Thus, some numeric findings differ from those presented In Table 2-7.
(2) Assumes "new road" is four travel lanes and "widening" is two travel lanes.
(3) SFD = Single Family Dwelling
(4) Section 4(f) of the Department of Transportation Act of 1966 prohibits use of historic resources or public
parkland for Federal transportation projects unless there is no feasible and prudent alternative.
2-41
• Excavation. The excavation required for the bypass would be roughly 10 times
that required for the widening project (approximately 2.2 million cubic yards, of
which 2.0 million cubic yards would be wasted, versus approximately 166,700
cubic yards).
• Change in Travel Distance. For reasons noted in "Length and Area of
Construction" above, the distance traveled by US 321 traffic would decrease with
the bypass alternative as opposed to the widening alternative.
• Neiahborhoods/Communities Affected. The bypass alternative would introduce
highway traffic to Blowing Rock's Green Hill neighborhood and several other
concentrations of development at the north end through which only local
residential traffic now passes. With the widening project, highway traffic will
remain in the communities through which it now passes.
• Displacement. In passing through the neighborhoods currently undisturbed by f
US 321, the bypass altemative would displace 23 single family homes and one i
business. The widening alternative would displace 12 single family homes and
five businesses. j
• Relation to the Blue Ridge Parkway. The bypass alternative would be parallel to
the Blue Ridge Parkway for part of its distance and would be in view of the 1
Parkway only briefly or perhaps not at all; therefore no constructive use is
expected. The widening project avoids crossing the Blue Ridge Parkway, ending
south of US 321's juncture with the Parkway.
• Other Community Issues. The Blowing Rock Bypass route would result in traffic
traveling along part of both Blowing Rock ridge lines, reducing further the
availability of land with valley views for private homes and non-highway related }
public overlooks. Traffic on the widening alternative will continue to pass through y
Blowing Rock
• Cultural Resources Impacts. The Blowing Rock Bypass would not affect historic
architecture or archaeological resources. The widening project will adversely
affect the National Register eligible Green Park Historic District, including the
National Register-listed Green Park Inn.
• Forest Habitat Lost/Wildlffe Impact Potential. The bypass alternative has the
greatest potential for forest habitat loss and thus wildlife impact potential because
of the construction of a four lane road on a new location through 44 acres of
undeveloped forested lands. Wildlife habitat would be fragmented.
Approximately 10.4 acres of urban trees will be lost as a result of the widening
project because this section of US 321 passes through a developed area.
Minimal wildlife impacts are expected with the widening project because of the
proximity of existing commercial and residential development and the current
a
roadway.
Water Resources Impact. Neither alternative will closely follow streams.
2-42
2.3.4 Improved Two- or Three-Lane Road
Four improved two-lane or three-lane road altematives are discussed below. They are:
1. Two lanes or three lanes for the full project length with existing passing sections.
2. Two lanes or three lanes for full project length with additional passing sections.
3. Four lanes south of Blowing Rock and two lanes within Blowing Rock.
4. Four lanes south of Blowing Rock and three lanes (two travel lanes and a continuous left
turn lane) within Blowing Rock.
A two-lane road that incorporates many of the design features of the four-lane preferred
alternative would help meet the project's accident reduction objectives. The two alternatives
involving two or three lanes for the full project length and additional passing sections would not
meet the capacity improvement objectives of the proposed action. The third and fourth options,
which call for two or three lanes in Blowing Rock, would not meet the capacity improvement
objectives of the proposed action, and the lack of route continuity would create safety problems.
In the 1989 North Carolina Highway Trust Fund law, the North Carolina Legislature established a
North Carolina Intrastate System. One purpose of the Highway Trust Fund law is to complete the
remaining four lane construction of this system. US 321 is a part of the Intrastate System. A
decision not to widen any single part of the Intrastate System to four lanes would be contrary to
the highway improvement policy established by the Trust Fund law.
Within the Green Park Historic District in Blowing Rock, the two-lane alternatives assume an
improved two lane road, including 12-foot lanes and curbs and gutters, as well as left turn lanes
at the Green Hill Road/Rock Road intersection. The three-lane aftemative assumes three 12 foot
lanes and curb and gutters with the center lane serving as a continuous left tum lane. The 12-
foot lanes and left turn lanes at the Green Hill Road/Rock Road Intersection are necessary for
meeting the proposed project's safety objectives. Options 3 and 4 assume that the second
northbound lane of the four lane road ends approximately 400 to 500 feet east of the Green Hill
Road intersection. The sharp curves and steep grades leading into Blowing Rods do not allow
this lane to be safely dropped before US 321's entry into the historic district. The second
southbound lane would begin just south of the historic district.
The four aftematives, their characteristics, and their ability to meet the objectives of the proposed
action are discussed in greater detail in the following paragraphs.
Two or Three Lanes for the Full Project Length
This alternative would incorporate many of the improvements included in the preferred
alternative, but US 321 would continue to have only two travel lanes. This alternative is
defined as follows:
Two 12-foot travel lanes.
Curve, grade and sight distance improvements that are similar to the preferred
alternative.
Left turn lanes at the same locations as identified in the preferred alternative or a
continuous third lane for left turns.
2-43
Improved angle of intersection at intersecting streets and roads at the same
locations as identified in the preferred alternative.
Tapers for right turns.
Passing sections at the same locations as the current road.
This alternative would improve many of the roadway's characteristics that increase the
potential for accidents. The existing road's narrow pavement and shoulder width, sharp
curves and steep grades are the principal contributors to the high accident rates. All
three of these characteristics would be improved with this alternative. South of Blowing
Rock, the widened lanes would aid in reducing the number of accidents involving single
vehicles that run off the road (over 40 percent of past accidents). Improved curves, left
turn lanes and tapers for right turns would aid in reducing the number of rear end
collisions (20 percent of past accidents). In Blowing Rods, improved curves, an improved
angle of intersection at Business US 321/Skyland Drive, left turn lanes or the continuous
left turn lane, and tapers for right turns would also reduce rear end accidents (35 percent
of past Blowing Rock accidents) and accidents involving turning traffic and cross traffic
(almost 40 percent of past Blowing Rock accidents).
With either two or three lanes, this alternative would not serve design year traffic (2018)
on US 321 at an acceptable level of service C. With three lanes, the level of service
would improve from Green Hill Road to Business US 321 to between a poor level of
service D and level of service E, as compared to level of service E with a two-lane road.
Elsewhere, the level of service would be the same as with two lanes.
Two or Three Lanes for Full Project Length
With Climbing Lanes or Additional Passing Sections
The provision of additional passing sections or partial climbing lanes on an improved two
or three-lane US 321 was evaluated. While many safety issues can be adequately
addressed by providing two 12 foot travel lanes with ten-foot shoulders, an improved two
or three4ane US 321 would be unable to meet the state's level-of-service objectives. For
this type of road it is considered desirable to maintain level of service C, which
corresponds to an uphill speed of 45 mph. An improved two or three-lane US 321 would
not provide level of service C because of the slow-moving trucks using the road. The
third lane would be for left turns only and would not address the problem of slow-moving
trucks.
Uphill, trucks cannot operate at speeds that are as fast as those desired by passenger
cars. The result is a queue of vehicles behind the trucks that are unable to operate at
their desired speed. Downhill, trucks must operate using low gears with resulting lower
speeds to protect their brakes. This results in the same, although somewhat less severe,
queue of vehicles trapped behind the truck.
It is unlikely that level of service C could be maintained if more than 12 percent of the
mileage of US 321 from NC 268 to Blowing Rock has only two lanes. For example,
assuming cars operate at a level of service C average speed of 45 mph except when
they average 25 mph behind trucks, the average speed of a car operating under these
conditions would be 41 mph if that car is behind a truck for 12 percent of the distance it
travels. A drop in average speed of 4 mph (the difference between 45 mph and 41 mph
in the example above) is enough to move vehicle operations from level of service C to
level of service D conditions. Therefore, almost 90 percent of US 321 would require
climbing lanes or passing sections to allow level of service C operations. An additional
2-44
downhill lane or passing section also would be required for substantial portions of US 321
to allow passenger cars to pass slow-moving trucks using low gear. The result of
providing enough climbing and downhill lanes or passing sections to maintain level of
service C is a road that would have more four-lane than two- or three-lane mileage.
Thus, maintaining level of service C by providing either passing sections or
climbing/downhill lanes may require 80 to 90 percent of US 321 to be widened to four
lanes. The merging required between sections of four-lane and two- or three-lane road
has inherent safety problems that make an improved two- or three-lane US 321, with
either passing sections or climbing/downhill lanes, less desirable than a true four-lane
facility.
Four Lanes South of Blowing Rock and
Two Lanes Within Blowing Rock
This alternative would have the same characteristics as the preferred aftemative except
that an improved two-lane road would be built within the Town of Blowing Rock. In
Blowing Rock, this alternative would include:
Two 12-foot lanes with curb and gutter. The second northbound lane of the four
lane road built south of Blowing Rock would end approximately 400 to 500 feet
east of the Green Hill Road Intersection. The sharp curves and steep grades
leading into Blowing Rods do not allow this lane to be safely dropped before this
point. The second southbound lane would begin approximately 900 feet south of
the Green Hill Road intersection.
Curve, grade and sight distance improvements that are similar to the preferred
alternative.
Left turn lanes at the same locations as identified in the preferred alternative and
at several additional intersections between Green Hill Road and the south
juncture with Business US 321.
Improved angle of intersection at intersecting streets and roads at the same
locations as identified in the preferred aftemative.
Like the two or three lane alternatives discussed above, this aftemative would improve -
many of the roadway characteristics and improve roadway safety. It would not allow
design year traffic to operate at an acceptable level of service, with traffic operating at
level of service E through Blowing Rock.
This alternative also would result in a design discontinuity and driver expectancy on US
321 would be affected. This could be a safety problem. The typical posted speed on this
highway on either side of the Blowing Rock area is 55 mph, with a 45 mph limit on the
outskirts of the town. While long-distance drivers (i.e., drivers passing through Blowing
Rods) can be expected to accept slowing down to 35 mph to pass through town, being
forced to travel at speeds of less than 25 mph because of congestion is an unreasonable
expectation of these drivers. This can result in frustration and hazardous driving.
This problem would be intensified by the fact that traffic through Blowing Rock will
comprise both local and long distance travelers. The speed expectations of these two
groups of drivers differ. Local drivers (and sightseers) may be content to travel at a low
speed irrespective of traffic conditions. This may add to the frustration of drivers (both
auto and truck) whose primary objective is to minimize travel time.
2-45
A four-lane road affords drivers choice in speed (within the design speed for that section
of road). A four lane road allows all traffic to travel closer to the posted speed, but also
allows faster traffic to pass slower moving vehicles (traveling less than the speed limit).
Moreover, potential delays at intersections or driveways, particularly in the peak season,
are minimized.
Four Lanes South of Blowing Rock and
Three Lanes Within Blowing Rock
This alternative would have the same characteristics as the previous alternative (Four
Lanes South of Blowing Rock and Two Lanes Within Blowing Rods) except that an
improved three-lane road would be built within the Town of .Blowing Rods. In Blowing
Rock, this alternative would include:
Three 12-foot lanes with curb and gutter. The third lane would be a continuous
two-direction, left-tum lane.
Curve, grade and sight distance improvements that are similar to the preferred
alternative.
Improved angle of intersection at intersecting streets and roads at the same
location as identified in the preferred alternative.
Like the alternative with two lanes in Blowing Rock and four lanes elsewhere, the second
northbound lane of the four4ane road built south of Blowing Rock would end
approximately 400 to 500 feet east of the Green Hill Road intersection. The sharp curves
and steep grades leading into Blowing Rock do not allow this lane to be safely dropped
before this point. The second southbound lane would begin approximately 900 feet south
of the Green Hill Road intersection.
Like the two to three lane alternatives discussed above, this alternative would improve
many of the roadway characteristics and improve roadway safety. It would not, however,
meet the capacity requirements for the project (provision for level of service C). With
three lanes, the level of service would improve from Green Hill Road to Business US 321
to between a poor level of service D and level of service E, as compared to level of
service E with a two-lane road. This improvement results primarily from removing left-
turn traffic from the through lane. North of the southern juncture of US 321 and Business
US 321, however, the roadway level of service would remain at E with the three lane
alternative. The level of service would not improve because traffic delays at the three
signalized intersections (Business US 321, Sunset Drive and US 221/Business US 321)
control the capacity.
As with the previous alternative, this alternative would result in a design discontinuity and
driver expectancy on US 321 would be affected. This could be a safety problem.
In summary, the various two-lane and three-lane alternatives discussed above would not
achieve the full purpose of the proposed project. A two- or three-lane road that
incorporated many of the design features of the four-lane preferred alternative would help
meet the project's accident reduction objectives. The capacity objectives of the project,
however, could not be met in a safe manner unless four lanes is provided for most of the
project length. South of Blowing Rock, steep grades require that at least 80 to 90
2-46
percent of the project area be four lanes to achieve the desired level of service. If four
lanes were built everywhere except Blowing Rods, despite the low level of service, the
lack of route continuity would create safety problems. Finally, a decision not to widen any
single part of the Intrastate System to four lanes would be contrary to the highway
improvement policy established by the Trust Fund law.
2.3.5 Redesignation of US 321
The "Concerned Citizens" organization of Blowing Rock, North Carolina proposed that a
different highway route between Lenoir, North Carolina and Hampton, Tennessee be
redesignated as US 321. The redesignation would be made as an alternative to widening
US 321 from Patterson to Blowing Rock.
The location of the citizen-proposed route and existing US 321 is illustrated in Figure 2-6.
The citizen-proposed route follows the following roads from Lenoir to Hampton:
• Southwest Lenoir Bypass from US 321 to NO 18.
• A new road from NO 18 to SR 1310, proposed as R-2626 in the 1993-1999 North
Carolina Transportation Improvement Program (TIP) (August 1992).
• SR 1310 to NO 90.
• NO 90 to SR 1337.
• SR 1337/SR 1335/SR 1405 to NO 181.
• NO 181 (including the segment between Pineola and the Linville Bypass that is
also designated as US 221) to NO 194 at Linville, North Carolina (including the
new Linville Bypass).
• NO 194 via Newland, North Carolina to US 19E near Elk Park, North Carolina.
• US 19E to US 321 at Hampton.
The citizen-proposed route is 69 miles long, very dose to the 66 miles of existing US 321
from Lenoir to Hampton.
As a result of this citizen initiative, a study of the merits of this alternative was conducted.
The study was:
• Designed as a general look at the proposed route's opportunities and difficulties.
It was assumed that additional, more detailed studies would be conducted if the
findings of this general study were inconclusive or indicated that the citizen-
proposed route was a reasonable alternative to widening US 321.
• Designed to focus on the various merits of the proposed route that were
identified by the "Concerned Citizens" group.
The study found no particular roadway design or environmental issues that would make
the redesignation of the citizen-proposed route as US 321 difficult. The study found,
2-47
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however, that the citizen-proposed route would not serve as an altemative to widening
US 321 from Patterson to Blowing Rods because:
The amount of traffic that would shift to the redesignated route would be small.
The future capacity needs of US 321 between Patterson and Blowing Rock would
not be changed.
Study methods and findings are described in Evaluation of an Aftemadve Route for US
321 Between Lenoir, North Carolina and Hampton, Tennessee (Parsons Brinkerhoff
Quade & Douglas, Inc., June 25, 1992). The paragraphs that follow present the key
discussions of findings contained in that study.
Roadway Design Findings
The study did confirm the Concerned Citizens' observation that their proposed route was
of generally good quality. No particular roadway design issues were identified thatwould
impede the redesignation of the citizen-proposed route as US 321. At a minimum,
however, 13.6 miles of the route (from SR 1310 to NC 181) would need to be upgraded
to current two-lane rural highway design standards. This section has narrow lanes,
inadequate shoulders, and substandard sight distances. Sharp bends at -the
intersections of SR 1310/NC 90 and SR 1405MC 181 also should be corrected. These
conclusions were based on the existing characteristics and planned improvements
described in the subsections below. Finally, as discussed under "Traffic Findings," the
redesignation should not significantly change traffic volumes on the citizen-proposed
route, thus other design changes do not appear warranted based solely on a
redesignation.
Existing Characteristics. The proposed route is primarily a two-lane facility. Four-lane
sections occur at each end and have a total distance of 9.5 miles. Passing lanes occur
along the northern half of the proposed route. They are almost continuous in Tennessee.
Standard 12-foot lanes are found on all but the 13.6 miles of the route that follow SR
roads. An adequate shoulder, although not always to current standards, is provided
along 60 percent of the route's length. With the exception of posted curves (primarily
along a 15.2-mile section of NO 181), the horizontal alignment can be driven by a
passenger car at the posted speed. This may not hold true for semi-trucks since road
operating characteristics vary. The vertical alignment along approximately 18.7 miles of
the route limits sight distances at crests of vertical curves. Most of this concern is along
the 13.6 miles of SR roads used at the southern end of the route. Steep grades occur in
two sections (totalling 13.4 miles) of the route.
Conversations with the Department's Division 11 (Caldwell and Avery Counties) and
Division 13 (Burke County) Engineers, as well as the Burke County- Engineer (at the
suggestion of the Division 13 engineer) yielded the following information:
In their experience the weather-related problems at upper elevations of the
citizen-proposed route and existing US 321 are not substantially different.
The only new improvement planned by the Divisions for the citizen-proposed
route is repaving in the Cold Springs area (near Upper Creek in Burke County).
Truck escape ramps should be considered for the long, steep grade on NO 181
In Burke County.
2-49
• Slope stability and maintenance (except in the area to be repaved) are not a
problem along the proposed route.
Planned Improvements. The North Carolina Transportation Improvement Plan lists two
improvements along the citizen-proposed route. The first is the new road from NC 18 to
SR 1310 (R-2626) that is listed above as a part of the citizen-proposed route. The
second is widening US 221/NC 181 to four lanes between Pineola and the Linville
Bypass. The Tennessee Department of Transportation currently has no plans to improve
either existing US 321 or US 19E (citizen-proposed route) from the North Carolina line to
Hampton.
Traffic Findings
If it were designated as US 321, the amount of traffic that would shift to the citizen-
proposed route, including tricks, would be small. The future capacity needs of US 321
between Patterson and Blowing Rock would not be changed. Currently, far fewer
vehicles use US 321 for trips between North Carolina and Tennessee than use US 19E.
Planned Interstate highway improvements in the western North Carolinaleastem
Tennessee region are expected to further reduce the limited desirability of US 321 as a
through route from Tennessee to Lenoir.
Annual Average Dally Traffic. Existing traffic volumes on the citizen-proposed route
are generally low. Volumes are the greatest at the northern end of the route. Annual
average daily traffic (ADT) on SR 1310/NC 90 was 1,500 to 1,800 vehicles in 1991. The
ADT was only 700 vehicles on the SR 1337/SR 13351SR 1405 section of the route and
was 1,800 to 2,100 vehicles on NC 181. Average daily volumes on NC 194 and US 19E
to the state line were 5,000 to 5,300 vehicles in 1991. In Tennessee, the 1991 ADT rose
from 5,640 vehicles at the state line to 8,170 at Hampton.
On existing US 321, the 1991 ADT was greatest In the Lenoir (9,200 to 10,000 vehicles
between Lenoles north city limits and NC 268) and Boone (11,400 to 14,900 vehicles)
areas. There were 5,800 to 6,200 vehicles between NC 268 and Blowing Rods, 6,800
vehicles in Blowing Rods, and volumes declined west of Boone to only 1,110 at the state
line. Thus, far fewer persons use US 321 for trips between North Carolina and
Tennessee (1,110 ADT) than use US 19E (5,300 to 5,640 ADT). In Tennessee, volumes
on US 321 rise from the 1.110 vehicles at the state tine to 5,400 vehicles at Hampton.
Much of the rise is probably attributable to Tennessee residents traveling to the Watauga
Lake recreation area.
Potential for Through Trip Diversion. The potential for diverting through trips moving
between Hampton, Tennessee and Lenoir. North Carolina from existing US 321 to the
citizen-proposed route Is small because the number of through trips between Hampton
and Lenoir is and will continue to be small.
Table 2-10 indicates that in 1989 approximately 47 vehicles per day operated between
US 321 west of Boone and the Watauga/Caldwell County line. This number is expected
to rise to approximately 68 vehicles per day by design year 2018, the US 321
Improvement project's design year. Table 2-10 and this finding are based on the results
of an external origin-destination study conducted by the Department and used during the
preparation of the Thoroughfare Plan Report for the Town of Boone (NCDOT Statewide
Planning Branch, 1991). Annual average daily traffic information for 1991 was also used.
Planned Interstate Highway Improvements In the Region. Planned Interstate
highway improvements in the western North Carolina/eastern Tennessee region are
2-50
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2-51
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expected to reduce further the limited desirability of US 321 as a through route from
Tennessee to Lenoir. Tennessee is in the process of improving US 23 between Erwin,
Tennessee and the North Carolina state line to Interstate highway standards. Tennessee
has already completed improving US 23 to Interstate standards from 1-81 to Erwin (via
Johnson City and currently designated as 1-181). North Carolina has programmed
(project A-10) the construction of a four-lane freeway from Asheville to connect to the
Tennessee project at the state line. The completed freeway will be designated 1-26. In
addition, the Intemwdal Surface Transportation Efficiency Act of 1991 (ISTEA) fists the
corridor from Cincinnati, Ohio and Detroit, Michigan to Portsmouth, Ohio to Winston-
Salem, North Carolina to Columbia, South Carolina as a high priority corridor for National
Highway System improvement.
Potential for Through Truck Trip Diversion. The potential for diverting through truck
trips in Blowing Rods by designating the citizen-proposed route as US 321 is small
because the potential for diverting any trips between Hampton and Lenoir is small.
The Boone origin-destination study found that 31.5 percent of the through trips between
US 421/321 to Tennessee and US 321/221 to Blowing Rock were commercial vehicles.
Based on this finding, approximately 15 commercial vehicles per day operated between
US 321 west of Boone and the Watauga/Caldwell County line in 1989. This number is
expected to rise to approximately 30 vehicles per day by 2018, the US 321 improvement
project's design year.
In addition, there is no reason to believe that a significant number of through trucks would
pass through Blowing Rods no matter how existing US 321 is designated because:
The delivery area for trucks sent through Blowing Rock is limited to the
immediate region according to representatives of three Charlotte trucking
companies.
US 321 in Blowing Rock is not on the us Secretary of Transportation's National
Truck Network.
Representatives of three Chariotte area trucking companies indicated that they avoid
roads with steep grades, such as US 321 between Patterson and Blowing Rock, because
of high fuel costs in either direction and safety concerns when traveling down grade. Two
of the three companies only use US 321 between Patterson and Blowing Rock if they
have deliveries in the Watauga/Ashe County area.. They currently use NC 181/NC
194/US 19E for trips to Hampton and Elizabethton, Tennessee because the grades are
less severe. One of the three presently uses US 321 for Hampton and Eliizabethton
deliveries. All three use the Interstate system for deliveries to Johnson City, Tennessee.
All expect that they will use 1-26 between Asheville and Johnson City to reach Tennessee
destinations when that route is completed.
The US Secretary of Transportation has designated a National Truck Network. US 321
between Patterson and Blowing Rock is not on the National Truck Network. All STAA
vehicles (1024nch-wide twin trailer trucks with 28-foot trailers and 1024nch-wide semi-
trucks with 48-foot trailers) are required by law to use the truck network unless it is
essential that they leave the network to make local deliveries. These types of vehicles
are generally used for interstate shipping, and according to a truddng company
representative, these vehicles make up 80 percent of the nation's common carrier truck
(all types) fleet. That same representative indicated that approximately 60 to 70 percent
of commercial trucks are operated by common carriers.
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Change in Future Capacity Needs. The 68 vehicles per day expected to operate in
design year 2018 between US 321 west of Boone and the Watauga/Caldwell County line
represents less than one percent of the 15,600 to 29,800 vehicles per day forecast to use
US 321 in Blowing Rock in the same year. Thus, designation of the ckizen-proposed
route as US 321 would have no impact on the capacity needs of US 321 between
Patterson and Blowing Rock. In addition, the small shift in traffic would not affect the
capacity needs of the citizen-proposed route.
Accidents. The Division 11 and Division 13 traffic engineers indicated that they knew of
no particular accident problems on the citizen-proposed route. The Burke County
engineer said that within the past year there have been four accidents on NC 181
involving tricks hauling coal from West Virginia to a Duke Power plant near Charlotte.
Chevrons were installed at two curves on NC 181 where several accidents have
occurred.
The Division 11 engineer also indicated that accidents are a problem on US 321 between
NC 268 and Blowing Rods. Those attributable to steep grades and sharp curves would
be difficult to correct because of the severe terrain.
Environmental Impact Findings
No particular environmental impact issues were identified that would impede the
redesignatlon of the citizen-proposed route as US 321. It improvements were made to
the route, impacts to the community and natural environment would occur, as they do for
most highway improvement projects. The community and natural environment along the
citizen-proposed route can be characterized as follows:
Rural with concentrations of homes and sometimes businesses in small
communities along the road. Concentrations of rural development can be found
along approximately 15 percent (8 of 52 miles) of the citizen-proposed route in
North Carolina and most of the 17 miles in Tennessee. Less than 2 percent of
the 13.6 miles of the citizen-proposed route that would need to be improved to
meet current two-lane rural road standards has concentrations of rural
development. Urban residential and industrial development occurs along the
five-mile, four-lane Southwest Lenoir Bypass.
Christmas trees and nursery stock are grown along much of combined SR
1337/SR 1335/SR 1405.
Streams parallel the road for approximately 31 percent (16 of 52 miles) of the
citizen-proposed route in North Carolina and most of the 17 miles in Tennessee.
Seven percent of the 13.6 miles of the citizen proposed route that must be
improved parallel streams. Only one large wetland area was Identified during the
study's field reconnaissance, although there are undoubtedly smaller wetlands
that were not readily apparent.
The following streams along the citizen-proposed route are classified as trout
waters by the State of North Carolina:
Relation to Often-
Stream Name Proposed Route
Wilson Creek crossed
Carroll Creek crossed and paralleled
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Upper Creek
Camp Creek
Linville River
Stacey Creek
Kentucky Creek
North Toe River
Blood Camp Branch
Whiteoak Creek
Blevins Creek
Cranberry Creek
Little Elk Creek
crossed
paralleled
crossed and paralleled
crossed and paralleled
crossed and paralleled
crossed
crossed
paralleled
paralleled
crossed
crossed
Wilson Creek, which would be crossed, is also classified as an Outstanding
Resource Water. Upper Creek and Steels Creek (both crossed and paralleled)
are classified as High (duality Waters.
Wilson, Carroll, and Upper Creek are found along the segment of the citizen-
proposed route that would need to be improved. These three streams plus
Camp Creek, Steels Creek, and the Linville River are found along the citizen-
proposed route between Lenoir and US 221 south of Linville.
Representatives of the Pisgah National Forest, Cherokee National Forest and the
North Carolina Department of Environmental Management indicated that if the
Department decided to improve the citizen-proposed route, the Department
would have to handle the usual array of natural resource issues and follow the
usual procedures for identifying impacts and mitigation measures. They 4
identified no highly unique resources for which impacts would be extraordinarily
difficult to mitigate. NC 181 passes through the midst of the Pisgah National
Forest for 17.6 miles. The Cherokee National Forest flanks US 19E from the
state line to Hampton, Tennessee; however, almost all of the land adjoining US f
19E is in private hands. l
The potential for environmental impact would depend upon whether a redesignated US
321 is improved only along the 13.6 miles of SR roads or if more extensive modifications
are deemed necessary. The principal environmental Issues related to improving the 13.6
miles of SR roads appear to be farmland loss and protection of trout waters and an
outstanding resource water. Some displacement of homes is also possible. If the
decision was made to designate the citizen-proposed route between Lenoir and US 221
south of Linville as a North Carolina intrastate corridor, approximately 33 miles of
widening to four lanes would be required. The length of existing US 321 from Patterson
to Blowing Rods is 15.1 miles. In addition to length, the magnitude of the impact of four
lanes would depend on the width of the four-lane typical section used and the earthwork
that would be Involved, particularly where streams are paralleled. Principal
environmental issues appear to be protection of trout, outstanding resource,.and high
quality waters; use of National Forest lands; avoiding stream modiilications and
floodplains; wildlife habitat loss; displacement (particularly at Jonas Ridge); and farmland
loss along the 13.6 miles of SR roads.
2.3.6 Postponement of Preferred Alternative
With this alternative, the preferred alternative would be implemented at some time in the future
but not within the current schedule. With this alternative, no immediate capital investment would
be required for right-of-way acquisition.
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Postponement would, however, result in steadily worsening traffic flow and accident conditions as
traffic volumes continue to rise. Property acquisition and construction costs could rise. Project
impacts would ultimately occur anyway and could worsen, particularly in Blowing Rock between
US 321 1Is southern juncture with Business US 321 and its intersection with US 221/Business US
321, as new development occurs along the existing right-of-way. Thus, altering the time frame for
implementation of the preferred alternative is not proposed.
2.3.7 Alternate Mode of Transportation
No alternate mode of transportation, such as bus transit, is considered to be a practical
alternative since the majority of the project area is rural and the project serves intrastate, as well
as local travelers.
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