Chapter 1 Project Need and Purpose
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The purpose of this document is to evaluate the social, economic, and environmental impacts associated with the final improvement alternatives to 4^th Street between Solar Road and Ortega Road. This document will also serve to determine the need for an Environmental Impact Statement if significant environmental impacts are identified. The study described in this document was conducted to satisfy the requirements of the National Environmental Policy Act (NEPA) of 1969 and has been prepared in accordance with the provisions and requirements of the Federal Highway Administration (FHWA) and the State Action Plan and other guiding policies of the New Mexico State Highway and Transportation Department (NMSHTD).

This report documents the third phase of NMSHTD’s Location Study Procedures for improvement alternatives to 4^th Street through the Village of Los Ranchos de Albuquerque in Bernalillo County, New Mexico. The first phase, the Initial Corridor Study, determined the need for the project, defined the full range of viable alternatives, identified the social, economic, and environmental constraints of each of the alternatives, and selected the most practical alignments to advance to the next phase. The second phase was a Detailed Evaluation of Alternatives. During this phase, alignment alternatives were refined and feasible design concepts were developed. The social, economic, and environmental constraints associated with each of these design concepts were also reviewed and final alternatives were selected for advancement to this, the third phase.

The project area (area of proposed roadway improvements) is along 4^th Street approximately at the intersection of 4^th Street and Solar Road and extends north for approximately 2.7 miles (4.3 kilometers (km)) to the intersection of 4^th Street and Ortega Road. Pedestrian improvements are planned for the east side of 4^th Street between Alamosa Road and Solar Road. The logical project termini were determined to be:

• South - the tie-in with the existing five-lane roadway section immediately south of the intersection of 4^th Street and Solar Road (at the Smiths Grocery).
• North - the intersection of Alameda Boulevard and 4^th Street.

However, to ensure that the environmental review covered a broad enough area to adequately assess the affects of the project, the study area was expanded to extend past this rational end point to the south. The study area for this project begins at the intersection of 4^th Street and Montano Road in Albuquerque, and terminates at the intersection of 4^th Street and Alameda Boulevard in Bernalillo County, New Mexico.

The project location is shown in Figure 1.1-1 and the project and study area in Figure 1.1-2.

According to the Albuquerque Urban Area Long Range Major Street Plan, 4^th Street is classified as a minor arterial. The roadway serves primarily local traffic within the study area; however, according to an origin/destination study conducted for this project, approximately 25 percent of the peak hour traffic passing through the southern project area is commuter traffic. The roadway is not used by large numbers of commuters because 2^nd Street, a six-lane principal arterial that parallels 4^th Street, is less than 0.5 mile (0.8 km) to the east. Commercial and residential land uses are dominant along 4^th Street. Three schools (one elementary and two middle schools) are within the study area; therefore, the roadway is used by large numbers of school buses. Bicycles and pedestrians also use the roadway and several designated equestrian crossings of the roadway occur within the study area.

Figure 1-1 – Project Location

Figure 1-2 project and study area

Within the study area, the typical section of 4^th Street varies. At the southern end of the study area (north of the intersection of 4^th Street and Montaño Road), the roadway is characterized by four 11-foot (3.3 m) driving lanes, a 14-foot (4.2 m) two-way left turn lane, curb and gutter, and a 5-foot (1.5 m) discontinuous sidewalk. Near the intersection of 4^th Street and Solar Road (slightly over 0.5 mile (0.8 km) north of Montaño Road) the roadway tapers to four 11-foot (3.3 m) driving lanes with limited shoulders, and no sidewalk or curb and gutter. This section continues throughout the remainder of the study area and throughout all of the Village of Los Ranchos (see Figure 1.1-3).

Access along the roadway is unrestricted. Approximately 200 turnouts/driveways exist within the project area. Commercial turnouts and driveways account for nearly 70 percent of the access points. Many properties have access to 4^th Street along the entire face of the property. Seven intersections within the study area are currently signalized (Montaño Road, Guadalupe Trail, Solar Road, Osuna Road, Ranchitos Road, El Pueblo Road, and Alameda Boulevard). Two flashing beacons alert motorists of school crossings at Schulte Road (serving Taft Middle School) and at Los Ranchos Road (serving Los Ranchos Elementary School).

The roadway has a posted speed limit of 35 miles per hour (56 km per hour) throughout the study area. Daily traffic volumes on the roadway vary from 27,500 vehicles per day in the southern project area to 11,500 vehicles per day immediately north of Ranchitos Road. Volumes on 4^th Street immediately south of Alameda Boulevard reach 14,500 vehicles per day.

The roadway is served by the City of Albuquerque's transit service, SunTran via Route 10. This route is one of the highest ridership routes in the city, with over 4.5% of city-wide ridership. The project area contains 31 transit stops. Bus riders on Route 10 frequently use the buses' bicycle racks. Ten percent of all city bicycle rack usage occurs on Route 10; therefore, bicycle and bus usage within the study area are closely linked.

Overhead and underground utilities exist within the corridor. Overhead utilities include power, telephone, cable television, and lighting that are located within or adjacent to the roadway right of way (ROW). Overhead power and telephone parallel the entire project. The utility company/agency ownership are: power - Public Service Company of New Mexico; cable television - Jones Intercable; and telephone - U.S. West Communications. Electric power lines, both distribution and major transmission, exist throughout the corridor. Overhead utility poles are located on both sides of the roadway within the ROW and distribution lines cross the roadway at multiple locations. Distribution lines are in the ROW through a franchise agreement.

Along the east ROW line, a 46,000-volt sub-transmission service exists that was constructed in the mid-1920's. It provides continuous service to the Sandia Pueblo, Town of Bernalillo, Santa Domingo Pueblo, Santa Ana Pueblo, Algodones, San Felipe Pueblo, Cochiti Pueblo, and the southern outskirts of Santa Fe.

In addition to overhead utilities, underground gas, water, sanitary sewer, fiber optics, and irrigation facilities also occur within the area. Underground storm sewers are present only in the southern study area (from Montano Road to Guadalupe Trail), with very limited drainage improvements within the Village limits. Although Federal Emergency Management Agency maps indicate that the 4^th Street corridor is not prone to substantial flooding, localized ponding problems are evident after rainstorm events. Individual French drains constructed by private property owners, NMSHTD, or the Village of Los Ranchos de Albuquerque are the most common method of addressing these ponding problems.

An interesting characteristic of the 4^th Street corridor is its economic importance to the Village of Los Ranchos de Albuquerque. The Village levies a gross receipts tax on all taxable sales to support local government functions. Gross receipts taxes account for approximately 80 percent of all general fund revenues; therefore, these taxes are the most important revenue source for the village. Approximately 90 percent of all gross receipts taxes collected by the Village are paid by 4^th Street businesses; therefore, businesses along 4^th Street fund over 70 percent of local government functions.

Improvements to 4^th Street are required to correct deficiencies of poor pavement conditions, existing and future traffic operations, roadway design, drainage, and to improve roadway safety. In addition, improvements to 4^th Street are needed to encourage economic development of the area. Each of these issues is discussed in the following sections.

Existing surfacing is currently in fair to poor condition. The pavement shows signs of low to medium severity deterioration, rutting, and various types of cracking such as block, longitudinal, and transverse cracking in lower areas, where ponding or stormwater runoff has historically occurred.

Existing intersection operating conditions were evaluated at all signalized intersections within the study area (4^th Street/Montaño Road, 4^th Street/Guadalupe Trail, 4^th Street/Solar Road, 4^th Street/Osuna Road, 4^th Street/Ranchitos Road, 4^th Street/El Pueblo Road, and 4^th Street/Alameda Boulevard) and one unsignalized intersection (4^th Street/Chavez Road). This analysis was performed using the capacity analysis procedures contained in the 1994 Highway Capacity Manual. Capacity is defined by Level of Service (LOS) which is expressed as letters A to F (LOS A representing the best operating conditions and LOS F the worst). Level of Service D is considered acceptable for the urban situation characteristic of the study area. Current traffic volumes were obtained from the Middle Rio Grande Council of Governments, if available, or from counts collected as a part of this study.

The results of the capacity analyses using existing peak hour volumes and intersection lane configurations are presented in Table 1.2-1.

Note: EBL = Eastbound Left; NBR = Northbound Right; WBT = Westbound Through, etc.

Table 1.2-1 demonstrates that during the evening peak hours, unacceptable levels of service (LOS E or F) occur for several turning movements at four intersections. Unacceptable LOS were noted for the following movements:

• Montaño Road - northbound left and southbound left
• Guadalupe Trail - northbound left
• Osuna Road - southbound left, right, and through

• Alameda Boulevard - eastbound and westbound through, and northbound left

In addition to the analyses of the signalized intersections, the unsignalized intersection of 4^th Street and Chavez Road was analyzed. According to this analysis, the eastbound left turning movement at this intersection also demonstrated an unacceptable LOS. Although problems were demonstrated at intersections, the 4^th Street four-lane mainline operated relatively well. With current traffic volumes along 4^th Street, the roadway maintained an acceptable LOS (LOS A to C) throughout the study area.

Projected traffic volumes for the design year 2020 were produced using the travel demand projection model EMME2. These projected peak hour volumes were applied to existing intersection lane configurations and the 1994 Highway Capacity Manual's capacity analyses were repeated. This analysis was conducted to determine the problems that would be expected solely due to growth in traffic volumes by the design year. The results are presented in Table 1.2-2.

According to Table 1.2-2, additional intersection movements will fall to unacceptable LOS in the future. Unacceptable LOS were noted for the following turning movements at the following 4^th Street intersections.

• Montaño Road - eastbound left, westbound right and through, northbound left, and southbound left, right, and through movements
• Osuna Road - eastbound left and through, westbound right and through, and southbound left movements
• El Pueblo Road - eastbound left, right, and through, westbound right and through movements
• Alameda Boulevard - eastbound left and through, westbound through, northbound left, and southbound left, right, and through movements

The results of the existing and future conditions analyses suggest that operational deficiencies currently exist at several intersections within the study area. The analyses further suggest that these deficiencies are expected to worsen in the future and additional deficiencies will result. Many of these intersections produce unacceptable LOS because of vehicles making turns from through lanes. This suggests that some of the operational deficiencies may be corrected by adding dedicated left and right turning lanes to these intersections.

Despite the problems demonstrated at the study area intersections, the 4^th Street four-lane mainline appeared to continue to operate well in the future. Although the LOS for 4^th Street drops to D in some areas, the roadway maintains an acceptable LOS throughout the study area.

Although operational problems were noted at several intersections within the study are, several of these intersections are under the auspices of the City of Albuquerque (Montaño Road/4^th Street, Guadalupe Trail/4^th Street, Solar Road/4^th Street) or Bernalillo County (Alameda Boulevard/4^th Street). As a result, improvements to these intersections must be addressed by these governmental entities in separate actions. Coordination with these entities, however, has been maintained throughout the project.

The traffic operational deficiencies (poor LOS) noted at the intersection of Osuna Road/4^th Street/Chavez Road is caused by the intersection offset (see Figure 1.1-4). Aligning this intersection will result in improved traffic operation, simplified signal operation, and improved safety.

Figure 1.1-4

Osuna Road/4^th Street/Chavez Road Existing Intersection

Safety concerns along the roadway are caused by the lack of turning lanes, uncontrolled access along the roadway, a lack of facilities for pedestrians and bicyclists, and inadequate sight distances and clear zone. According to an analysis of accidents for the years 1994, 1995, and 1996, rear-end accidents were the most common type of accident within the study area (38 percent of accidents). Rear-end accidents are usually caused by the front vehicle slowing to make a turn. Although many of these accidents may have occurred at intersections, many occurred between intersections; therefore, the lack of turning lanes contributed to accidents in the study area. Because access is uncontrolled within the study area, vehicles may stop to turn at any time. According to the Institute of Transportation Engineers' 1993 Traffic Safety Toolbox, channeling left-turns at signalized intersections may be expected to reduce accidents by 15 percent and at unsignalized intersections by 30 percent without a raised median separation.

Pedestrian and handicapped facility problems are especially acute in the southern project area near Taft Middle School. Taft operates a Side-by-Side program for handicapped students. The disabilities of some of these students confine them to wheelchairs. The Side-by-Side program uses frequent field trips to businesses in the 4^th Street area to teach life responsibilities to the students. Because no sidewalks are provided, the teachers must push the students on residential streets until they cross 4^th Street. Crossing 4^th Street is normally accomplished at the traffic signal at Solar Drive; however, the intersection at Solar Drive is not compliant with the Americans with Disabilities Act and resultant regulations. As a result, the wheelchairs cannot access the limited sidewalks present in this area and must instead cross in the street. This produces a safety concern for the students and their teachers.

Albuquerque Public Schools (APS) classifies two areas within the corridor as "high hazard walking conditions". These two areas are near the intersections of 4^th Street/Ortega Road and 4^th Street/Los Ranchos Road. As a result of these classifications, special allowances are made to provide bus access to children attending schools in the area. Normally most of these children would be required to walk to school. Residential walls and utility poles in these areas occupy the entire roadway shoulder and, therefore, pedestrians are required to enter the roadway.

According to American Association of State Highway and Transportation Officials’ (AASHTO) Roadside Design Guide (1989), a clear zone or recovery zone is recommended adjacent to roadways. This clear zone will allow a vehicle that has left the roadway to recover and return to the roadway without colliding with roadside obstacles. Based upon roadway design speed and slopes adjacent to the roadway, the recommended clear zone width for the study area is 14 feet (4.2 m) without curb and gutter and 1.5 feet (0.5 m) with curb and gutter. There are few areas within the study area where recommended clear zone width is provided. Roadside obstacles such as signs, utility poles, walls, buildings, porches, parking areas, and mailboxes are common within the clear zone.

The City of Albuquerque provides a storm drain system south of Solar Road. The project area north of Solar Road is not provided with a storm drain system and, as a result, several locations exhibit drainage problems. In several areas, buildings adjacent to the road are at or below the elevation of the roadway. As a result of these elevations and the lack of adequate drainage, ponding adjacent to the roadway and in these properties is common. This ponding causes maintenance problems for the roadway and adjacent businesses and also presents problems to pedestrians, transit users, and bicyclists along the project area.

As discussed earlier, the use of curb and gutter to control drainage has safety benefits as well. Vehicles that strike a curb tend to be diverted back to the roadway before they can collide with roadside obstacles; therefore, the necessary clear zone width is reduced.

As discussed earlier, the Village of Los Ranchos is dependent upon 4^th Street businesses and the gross receipts taxes they generate for its economic well being. According to the 4^th Street Revitalization Study recently completed by the Village of Los Ranchos, taxable activity has shown no substantial growth in the last three years (1995, 1996, and 1997). The study also revealed that businesses along 4^th Street primarily rely on customers from outside the study area.

The improvement of pavement conditions, traffic operations, safety, pedestrian facilities, drainage, and lighting would be expected to encourage the use of the area by additional patrons. These patrons may be attracted from outside the study area, but conditions would also be more appealing to area residents. Therefore, as a direct result of these improvements, economic stimulation of the area could be expected.

The economic importance of the roadway to the Village imposed constraints upon the alternatives considered. Loss of Village revenues through acquisitions and relocations of businesses could be quite substantial; therefore, improvement alternatives considered were designed to minimize the amount of relocations and acquisitions that would be required.

The planned improvements to 4^th Street are needed to correct deficiencies of poor pavement conditions, existing and future traffic operations, roadway design, drainage, to improve roadway and pedestrian safety, and to stimulate the local economy. Alternatives for improvements to accomplish these tasks are described in the following chapter.

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