Scenic byways feasibility study final report

286 Pages·1994·20.8 MB·English

by  Montana. Transportation Planning Division

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711.73
T6SBF
1994
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Scenic Byways Feasibility Study
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A
Report
Final
y
Transportation Planning Division
Montana Department of Transportation
in cooperation .with
Federal Highway Administration
1994
July,
A Prepared by:
Morrison-Maierle Environmental Corporation
*>
Helena, Montana
in cooperation with:
Design Workshop, Inc.
and
Communications Strategies
MONTANA STATE LIBRARY
3 0864 1001 5699 4
f
Montana DepartmentofTransportation
Scenic Byways Program Table ofContents
EXECUTIVE SUMMARY
i
INTRODUCTION
i
SCENIC BYWAYS RECOMMENDATIONS
ii
Mission, Goals and Objectives
ii
System Profile
ii
Recommended Nomenclature
iii
Recommended Designation Criteria iii
Absolute Requirements for National Scenic Byways Nomination iii
Absolute Requirements for State Scenic Byways Nomination iv
Specific Criteria (non-absolute) v
Program Process and Administration vii
Route Eligibility vii
Review and Selection Process vii
Administration and Funding vii
Facilities and Signing Plans viii
Program and Route Promotion
viii
Intra and Interstate Coordination viii
Oversight and Reporting ix
De-Designation Proceedings ix
INTRODUCTIONTO PROGRAM DEVELOPMENT
x
Introduction x
Mission, Goals, and Objectives x
Master Planning Process x
Byways/Backways Nomination Criteria x
Nomination (Application), Review and Selection Process x
Intra and Interstate Coordination xi
Corridor Management Plan Guidelines xi
Program Responsibilities xi
Marketing Strategies xi
Monitoring and Evaluation xi
De-Designation xii
Appendices xii
GENERAL OUTLINE FOR CORRIDOR MANAGEMENT PLAN
xii
DEVELOPMENT OF SCENIC BYWAYS GUIDE xiv
PRESERVATION TECHNIQUES AND IMPLEMENTATION STRATEGIES xv
Existing Conditions in Montana xvi
Land and Resource Protection Techniques xvi
FINAL REPORT xvi
MONTANA SCENIC BYWAYS FEASIBILITY STUDY
FINAL REPORT
1
INTRODUCTION
1
CHAPTER
1
ADVISORY COMMITTEE 3
Montana Scenic Byways Feasibility Study
Montana Department ofTransportation
TASK DESCRIPTION
3
TASK PREPARATIONS
3
ADVISORY COMMITTEE SELECTION AND NOTIFICATION
8
PUBLIC INVOLVEMENT
8
CHAPTER
2
POTENTIAL RAMIFICATIONS
10
TASK DESCRIPTION
10
TASK PREPARATION
10
CURRENT SETTING
17
Existing Byways 18
State and Federal Highway Systems 18
Land Use Controls and other Protective measures 18
PROGRAM RAMIFICATIONS
19
Public Acceptance 19
Land Use Controls and Other Protective Measures 20
Socioeconomic 20
Highway Safety 21
Legal/Liability 21
Short and Long-Term Maintenance 22
Short and Long-Term Administration 22
Short and Long-Term Funding 23
CONCLUSIONS AND PRELIMINARY RECOMMENDATIONS
24
CHAPTER
3
ACCOMMODATING INCREASED TOURISM
26
TASK DESCRIPTION
26
TASK RESULTS
26
MDT
Extent to Which Can Manage a Scenic Byways Program 26
Funding Alternatives 28
Highway and Facility Design Options 32
Scenic Byways Unit Costs 44
Scenic Byways Signing Options 46
Planning Considerations for Signs 46
Types of Signs 47
Recreation Information Topics 47
Considerations for a Montana Scenic Byways Program 47
Use Projections 48
Level of Service Analysis 49
Traveler Needs Assessment 52
CHAPTER
4
SCENIC BYWAYS CRITERIA 53
TASK DESCRIPTION 53
CONCEPTUAL BYWAYS REGIONS
53
Montana Scenic Byways Feasibility Study
Montana DepartmentofTransportation
Scenic Byways Program Table ofContents
POTENTIAL SCENIC BYWAYS CRITERIA 53
Intrinsic Value 54
Safety and Road Type or Conditions 54
Roadway Character 55
Local Commitment ofResources 56
Compatibility 56
Management/Protection 57
Other Criteria Available for Consideration 57
DETAILED PROFILE OF POTENTIAL BYWAYS CRITERIA 58
Intrinsic Value 58
Safety and Road Type or Conditions 61
Roadway Character 63
Local Commitment ofResources 65
Compatibility 66
Management/Protection 67
Other Criteria Available for Consideration 69
DESIGNATION STRATEGIES
71
Develop Master Plan 71
Statewide Solicitation 71
Application/Petition 71
OVERSIGHT ALTERNATIVES
71
Montana Department ofTransportation 71
Scenic Byways Advisory Committee 71
.
Oversight Committee 71
Local Governments 72
ADVISORY COMMITTEE MEETING RESULTS 72
PROGRAM RECOMMENDATIONS -
Designation Criteria 76
Absolute Requirements for National Scenic Byways Nomination 77
Absolute Requirements for State Scenic Byways Nomination 78
Specific Criteria (non-absolute) 78
Criteria Weighting 80
CHAPTER 5
PROGRAM MISSION AND ALTERNATIVES 83
TASK DESCRIPTION 83
CONCEPTUAL SCENIC BYWAYS PROGRAM - MISSION, GOAL, AND
OBJECTIVES 83
Mission 83
Goals 83
Objectives 84
PROGRAM ALTERNATIVES 84
Program Scope 84
Review and Selection Process 85
Administration/Management 85
Funding 86
86
Facilities
Signing 87
Montana Scenic Byways Feasibility Study
Montana Department ofTransportation
Table ofContents Scenic Byways Program
Promotion 87
Oversight Alternatives 88
RECOMMENDED ALTERNATIVE
89
Alternative for Short-range Plan 89
Variations on Individual Routes 90
COST CATEGORY FOR RECOMMENDED ALTERNATIVE 90
Sign Costs 90
Promotional Costs 90
COORDINATION STRATEGIES WITH OTHER AGENCIES 91
PRELIMINARY FORMAT FOR BYWAYS GUIDE
91
ADVISORY COMMITTEE FOLLOW-UP
93
Route Jurisdiction 93
Adjacent Land Jurisdiction 94
.
De-designation 94
Application Narrative 94
Program Name/Logo 95
Chapter 6
ISSUES IDENTIFICATION AND PRESERVATION STRATEGIES 97
TASK DESCRIPTION
97
POTENTIAL SCENIC BYWAYS ISSUES 97
Enabling Legislation 97
Inter and Intrastate Coordination 98
Intrinsic Values and Land Use 99
Designation and de-designation proceedings 99
Environmental 100
PRESERVATION TECHNIQUES AND IMPLEMENTATION STRATEGIES ... 100
Existing Conditions in Montana 102
Land and Resource Protection Techniques 102
Land Acquisition Techniques 102
Land Transfer Controls 104
Purchase of Development Rights 105
Land Banking 105
Transfer of Development Rights 105
Deed Restrictions 106
Land Use Controls 106
Conservation and Scenic Easements 106
Zoning Ordinances 106
;
Overlay Zoning 107
Scenic Highway Districts 107
.
Agricultural Districts 107
Land Development Costs 107
Subdivision Regulations 107
Cluster Development 108
Tax Incentives 108
Planning 108
Montana Scenic Byways Feasibility Study
Montana DepartmentofTransportation
Scenic Byways Program Table ofContents
Comprehensive Plans 109
Environmental Review 109
Site Plan Review 109
Sign Control 109
Billboards 110
On-Premise Sign Control Ill
View Protection 112
View Protection Ordinances 112
Tree Protection Ordinances 112
Voluntary Approaches 112
Notification Programs 112
Recognition Programs 113
Nonbinding Agreement Programs 113
Corridor Management Plans 113
.
General Recommendations 113
Montana’s Byways Preservation Plan 115
GENERAL OUTLINE FOR CORRIDOR MANAGEMENT PLAN
115
PRELIMINARY OUTLINE FOR MASTER PLAN
119
GENERAL INTRODUCTION TO PROGRAM DEVELOPMENT
120
APPENDIX A
A-l
APPENDIX B B-l
APPENDIX C
C-l
APPENDIX D
D-l
APPENDIX E E-l
APPENDIX F F-l
APPENDIX G G-l
APPENDIX H H-l
APPENDIX
I 1-1
APPENDIX
J J-l
APPENDIX K K-l
.
APPENDIX L L-l
M
APPENDIX M-l
Montana Scenic Byways Feasibility Study
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Introduction Montana Department ofTransportation
MONTANA SCENIC BYWAYS FEASIBILITY STUDY
FINAL REPORT
INTRODUCTION
The National Scenic Byways Program was established in 1991 by the Intermodal Surface
Transportation Efficiency Act (ISTEA), which also provided funding for state studies. Through
this program, Montana received a federal grant with a required state match to hire consultants and
conduct a study on the feasibility, scope, and objectives of a scenic byways program in Montana.
Program development is not a component of this project. However, depending on the results of
this feasibility study, the Department could have the option to pursue enabling legislation and the
subsequent development of a scenic byways program.
The consultant team of Morrison-Maierle Environmental Corporation, Communications Strategies,
and Design Workshop began the study by taking an in-depth look at what other states have done
with their state scenic byways programs. The survey proved to be a valuable tool in the team’s
efforts towards understanding program components and the means by which they could achieve
successful results. The survey showed that some states, such as Idaho, have basic programs that
just sign scenic routes while other states have programs which include extensive promotional
efforts and public-private partnerships. The San Juan Skyway in Colorado, for example, is widely
promoted by the State, Forest Service, and local groups with funds for development from several
sources. The survey also found that some states have programs with major problems. In
California, for example, the Department ofTransportation is attempting to increase the quality and
marketability of its program by eliminating routes with marginal scenic values. In general, the
contacted states recommended small, high quality programs with extensive promotional efforts.
Once the survey results were analyzed, the study team turned its efforts toward researching what
would be most workable for Montana. To ensure valid, applicable study results, they enlisted the
help of a 22-member Advisory Committee to act as a constituent-oriented "sounding board" for
ideas and recommendations. In selecting the committee, the study team attempted to assemble a
group of interested people representing as many constituencies, perspectives, and geographic areas
as possible while maintaining a reasonable group size. Throughout the process, committee
members were asked to poll their constituencies regarding process issues. Committee members
provided input and recommendations on program scope, role, and objectives in addition to
potential route designation criteria and ways to develop and manage a program. The Committee’s
input was valued greatly throughout the study.
Although many recommendations are made throughout the following chapters, general study
results show that a scenic byways program is feasible in Montana and that the Department is
capable of incorporating a program into its administrative responsibilities. The general
recommendation calls for: 1) a quality oriented program with grass-roots initiatives, 2) proven
local, state, tribal and federal support, 3) minimal Department overhead, 4) strict adherence to
designation criteria, and 5) a proactive oversight and reporting schedule.
Montana Scenic Byways Feasibility Study 1
Montana DepartmentofTransportation Introduction
The following chapters contain an explanation of the study team’s recommendations, including a
prioritized list of designation criteria. Chapter 1 presents the 22 member Scenic Byways Advisory
Committee and describes the process used in its selection. Chapter 2 investigates potential
ramifications associated with the development of a scenic byways program. Chapter 3,
Accommodating Increased Tourism, considers the Department’s existing ability to manage a
scenic byways program in terms of funding, administration and other in-house parameters.
Chapter 4 profiles potential scenic byways designation criteria while Chapter 5 presents a range of
—
scenic byways alternatives including a recommended alternative. Finally Chapter 6 outlines
issues that could be expected upon implementation of a program and suggests strategies for
program development and preservation of designated routes.
2 Montana Scenic Byways Feasibility Study