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Resolution No. s4-as
A RESOLUTION OF THE BUTTE COUNTY BOARD OP~SUPERVISOR5
DELETTNG THE CURRENT TRANSPORTATION ELEMENT AND ADDING
A CIRCULATION ELEMENT TO THE BUTTE COUNTY GENERAL PLAN
WHEREAS, the existing transportation element adopted in August
1971 pre-dated the Butte County Land Use Element adopted on October 30,
1979 and subsequent Land Use Element Amendments fox the Concow, Chico,
Biggs-Gridley, and Oroville Areas; and
WHEREAS, the adoption of a new Circulation Element rather
than an amendment of the existing Transportation Element allowed for
the correlation of the Circulation Element with the New Land Use
Element; and
WHEREAS, pursuant to Government Code Section 65351, hearings
have been held by the Butte County Planning Commission to consider the
proposed Circulation Element; and
WHEREAS, after due consideration of oral and written recommenda-
Lions, the Butte County Planning Commission incorporated certain changes
by an Addendum to the Circulation Element and its draft Environmental
Impart Report; and
WHEREAS, the Butte County Planning Commission found that the
proposed Circulation Element, attached hereto as Exhibit "B", will be in
conformance with the policies of the other elements of the Genexal Plan,
comprising an integrated, internally consistent and compatible statement
of policies; and
WHEREAS, the Butte County Planning Commission pursuant to
Government Code Section 65352 and Section 65353 approved the proposed
Circulation Element attached as Exhibit "B"; and
WHEREAS, the Butte County Board of Supervisors, puxsuant to
Government Code Section 65355, has held hearings to consider the draft
Environmental Impact Report and proposed Circulation Element, considering
oral and written recommendations; and
WHEREAS, the Board of Supervisors has considered and certified
as adequate the contents of the Environmental Impact Report for the
Circulation Element attached as Exhibit "A"; and
WHEREAS, while certain adverse environmental impacts can not
be completely mitigated and may be unavoidable and significant, as des-
cribed in Section 5.0 of the Draft Environmental Impact Report, the pro-
posed Element has fully accounted for overriding state planning policies
regarding Land resources, growth and the cost and benefits of growth.
NOW, THEREFORE, BE IT RESOLVED, as follows:
1. That the current Transportation Element is hereby deleted
from the Butte County General Plan; and
2. That the proposed Circulation Element, attached hereto as°
Exhibit "B", is hereby added to and becomes a part of the Butte County
General Plan; .and
3. That pursuant to Government Code Section b5359, the
General Plan of the County of Butte is endorsed to show that the proposed
Circulation Element is appxoved by the Board of Supervisors.
PASSED AND ADOPTED, this 1st day of May, 1984, by the Butte
County Board of Supervisors by the following vote:
AYES: Supervisors Dolan, Fulton, P9oseley, Wheeler and Chairman Saraceni
NOES: None
ABSENT: None
NOT VOTING: None ~/
Grp ht~~clin~ . .
AL SARACEN CHAIRMAN
Butte County Beard of Supervisors
ATTEST: MARTIN J. NICHOLS, Chief Administrative
Officex and Clerk of the Board
By ~-~,~,~~Pr~-C~c~1,~O~,
C I R C U L A T X O N E L' E M E' N T
BUTTE COUNTY GENERAL PLAN
August, 1983
March, 1984
CIRCULATION ELEMENT
BUTTE COUNTY GENERAL PLAN
BUTTE COUNTY BOARD OF SUPERVISORS
Al Saraceni, Chairman, First District
Jane Dolan, Second District Hilda Wheeler, Third District
Bertha Moseley, Fourth District Len Fulton, Fifth District
BUTTE COUNTY PLANNING COMMISSION
Michael Schrader, Chairman, First District
Nina Lambert, Second District
wren Vercruse, Third District
Otto Behunin, Fourth District
Alan Avis, Fifth District
BUTTE COUNTY PLANNING DEPARTMENT
B. A. Kircher, Director
Steve Streeter, Senior Planner David Hironimus, Associate Planner
Bill Turpin, Senior Planner Laura M. Tuttle, Assistant Planner
Mark Radabaugh, Senior Planner Rick Rodriguez, Planning Technician
Craig Sanders, Planning Technician
March x984
Table of Contents
Section pie
PART ONE - ~iAS I S FOR POI,I CY
1.0 Introduction l
1.1 Organization of the Circulation Element 2
l.2 Basic Planning Requiren~ents 2
1.21 General Plans 2
1.Z2 State and Regional Transportation Plants 3
1.2 3 irnvi ronmental Requirements 3
1.24 Citizen Participation 4
2.0 Exi sting Transportation System 5
2.1 itoacis, Streets and highways 5
2.11 i;asic Road and iiigilway Vetwark 5
2.12 Tra f fi c Con.cii tions 7
2.13 Existing iiigh~aay Construction and riaintenance $
P ro gxams
2.2 Public Transportation 9
Z.3 Transportation Systems P~fana~ement ~-~
2.4 Bicycle Ridexship 12
2.5 Pedestrian Access 12
2.6 Aviation l3
2, 7 Commexcial Goods Transportation 14
2.71 Trucking 14
2.72 P.ailroads ~ 14
2.73 Gas and Electrical i)tility Corridors l5
3.0 Transportation and Energy
3.1 isnergy iise in Transportation
3.11 Energy and A4obility
3.2 Efficiency and Conservation Aspects
3.21 Autamotaile Efficiency and Fuel i}emand
. 3.22 Extending iligiiiaay Capacity Through Transportation
Ffficiencv
3.3 Transportation and £neri;y Related Assumptions
4.0 Financing Issues Related to Butte County's Transportation
System
4.1 Fast and Present Pina~~cing
4.2 Cost Factors in I+iaintaining the County Road System
4.3 Future Road and iii gi~way Fin ancin g
4.4 Imnlicatians of Future Raad and highway Financing
5.0 Road Classifications and Standards
5.1 Functional iIighEti*ay Ciassi fication
5.2 Road Standards
$.21 ACCe55 and. Road Standard Issues
5. Z2 Erasion and Roads
5.23 Development Agreements
~. 7
17
18
l9
19
2a
21,
23
z3
25
z7
3Q
32
32
35
35
37
38
Section page
6,D Transportation Forecast 3g
6.1 Transportatio;i Plans of Affected Jurisdictions 39
6,11 Butte County General Plan 3g
6,12 Cities of Butte County al
6.13 Butte County Regional Transportation Plan 45
6.14 Caltrans 46
6.2 Pap ulation Growth and Land Use Concerns 46
6,21 Urban Area Growth 49
6.22 Rural Area Growth 4~
6.23 General Planning Implications of Forecasted
Growth to the Butte County Circulation System 49
b.3 Road and i~Iighway Forecast S1
b.31 Current Traffic Conditions 51
b.32 Assessment of Projected Traffic Growth by
Planning Area 54
6.33 Road and }Iig~hway Reciuirements in the Year 2400 57
6,4 0#.her Transportation ;Modes Forecast 64
6.41 Public Trans~aortation 64
6,42 Transportatian Systems :Management b5
b, 43 Bicycle P,idership b5
6.44 Pedestrian :'Iccess 66
6.45 ~lviatian Forecast 66
6.46 Commercial Goods Transportation Forecast 67
Appendices,' Including Environmental Impact P~e}~ort. 87
PART Tl'v0 - ISStJF.S A}1I7 POLICIES fib
7. D Transportatian Issues and J'olicies 68
7.1 Transportation Issues b8
7.2 Countywide Falicies 70
7.21 Transportation and. Land Use 70
7,22 riscal 71
7.23 Environmental 74
7.24 Road and Street Standards 7S
7.25, Safety 77
7.26 Special Studies and Si~eci.fic Plans 78
7.3 Urban Area Policies 79
7.31 I~iterj uriscliction4-~1 ~'oardi.natian 79
7.32 Urban Streets and Ilig}ways 80
7.33 Public Transportation 81
7.34 J3ic,rcl.e Transportation 82
7.35 Pedestrian Circulation 84
7.3G Air Transportation $4
7.37 l~~fulti-modal Transportation 85
7.38 Additional LIr}pan Area Policies 86
PART TI}REE - APPrhTDI CES
A. I?nvi ronmental Impact Report 87
i3. Iii~;h~vay System Level of Development Planni~ig lOD
C. 'average Trip Generation Rates for Common Land iJses W
Urban Axeas 10Z
D. Levels of Service 103
E. I,Comments of the Citizens Advisory Committee and
Staff Responses .
PAR'T' THREE - APPENDICES (continued)
E. II. Public Comments
IiI. Staff Report and Recommendations
IV. Additional Staff Recommendations, January 19, 1984
V. Planning Commission Addendum, February l6, 1984
F. Persons Speaking at Planning Commission Meetings(other than
staff)
List of Figures
Figure Number and Name Page
Basis for Polic Sections
1. State and County Highways and Roads 5a
*2. Federal Aid to Secondary Raad System 8a
*3. Railroads and Utility Corridors 14a
4A. Street Standards - Arterials 34a
4B. Street Standards - Collectors Local Streets and Roads 34b
5. Existing and Future Traffic Volumes - Chico Urban Area 42a
6. Existing and Future Traffic Volumes - Oraville llrban Area 44a
7. Existing and Future Traffic Volumes - Tawn of Paradise 44b
8. Planning Areas in Butte County 48
*9. 1983. Traffic Volumes on Major Highways 52a
*l0. 1981 ~iighway Capacity m Major Highways 52b
*ll. Forecasted Traffic Volume in~Year 2000 on Major Highways 62a
Issues and Policies Section
*A. Countywide Circulation: 3~fajor Road and highway Classi-
fication 71a
B. nesignated Hazardous and Toxic 'Materials Routes 74a
*C. Chico Urban Area - Major Street and Highway Network
to Year 2000 79a
*D. Oroville Urban Area - Major Street and E-iighway Network
to Year 2000 79h
*E. Paradise Urban Area - Major Stxeet and Highway Network
to Year 2000 79c
*F. Gridley-Biggs Urban Area Major Street and Highway
Network to Year 2000 79d
Note: Figures which. are marked by an asterisk (*) are found in
jackets attached to cover pages.
List of Tables
Table t~sumber and game
Pale
,_
1, Road t~files in Butte County by Jurisdiction 6
2, Tnfarmal Park-and-Ride Lats an State fIigliways in 11
B~xtte Cottnty
3. Estimated Butte County Road Maintenance anti Construction
Revenue - rY 19$2/83
24
4, F'unctianal System Characteristics - Lirban Areas 33
5. Functional System Characteristics - Rural Areas 3~
~. Population Distribution and Density by Planning Area
,
1`~Si) and 2ooQ
~~
7. Traffic Volumes - Rural Caunty I:oads, 1973 and 19$1 52
8. Roaditi~ay Capacity - bevels of Service Bg
9. Existing and roreeasteci Traffic Volume=s for State I-ligltway
Routes in Butte County ~~
~.ist of Circulation Element Acronyms
AADT
ALUC
BCAG
BCT
CAFE
CATS
CEQA
CT C
DOF
DjS~ R
EIR
FAP
FAS
FAU
FTIP
AiPO
OTS
01~ I D
PGFE
PUC
RTIP
RTP
SA1SA
STA
STIP
TDA
TShi
UMTA
Vi~iT
1VAPA
Annual Average Daily Traffic
Airport Land Use Commission (Butte County Planning C.ammission)
Butte County Association of Governments
Butte County Transit
Corporate Average Fuel Economy
Chico Urban Area Transportation Study, also,
Transit System
California Environmental ~ttality Act
California Transpoxtation Commission
California Department of Finance
California Department of 4tiater Resources
Environmental Impact Report
Federal Aid Primary
Fedexal Aid Secondary
Federal Aid Urban
Federal Transportation Improvement Program
Metropolitan Planning Or~anizatian
Oroville Transit System
Oroville 1ti'yandotte Irrigation District
Pacific Gas and Electric Camp any
California Public Utilities Commission
Regional Transportation Imp ravement Program
Regional Transportation Plan
Standard r•letropolitan Statistical Area
State Transit Assistance Act (SB 620 - 1379)
State Transportation Improvement Pro gram
Transit Development Act (SB 325 - 1971)
Transportation Systems P~fanagement
Urban Mass Transit Administration
Vehicle Miles of Travel
U. S. Western Area Power Administration
Chico Area
Butte County
Circulation Element
Part One
Sections 1.0 to 6.0
Basis far Policy
SECTION 1.0
INTRODUCTION
The Circulation element of the Butte County General Plan is a
guide to managing $nd developing the future transportation and
circulation System in the County, Our transportation system is
a basic support network far providing the mobility needed to
sustain our social, economic, and recreational life. Continued
maintenance of this transpoxtation system is vital for insuring
that we continue our present level of mobility, while given the
chance to develop and improve upon it in the future. The intended
timeframe of the Element carries to the year 2Q00, with analysis,
evaluation, and planning focused an policies and programs within
five and ten year timeframes.
Transportation is a huge capital investment
An important aspect to appreciate about the Butte Caunty transporta-
tion system is the huge capital investment that it represents. All
levels of government; federal, state, and local, hold in trust a
huge public investment in managing, maintaining and planning our
transportation system. In Butts County, the state highways form
the backbone and lifeline of the County's highway network, while
the County and its five incorporated cities serve to provide the
transportation network's local requirements. For all of this,
there must be coordination and planning both between and within
public xoad and transportation agencies and their departments.
The risk of improperly developing a transportation system can
create problems that negatively affect present and future mobility;
creating potential for safety hazards, wasted and unnecessary
public and private expenses, and «aste or poor utilization of other-
wise useful land and open space. 1~ith adequate information and
pxudent forethought we have the opportunity to avoid many problems
that could cost us more in the future, meanwhile seizing on oppor-
tunities that can help insure a more pleasant and stable transparta-
~tion future.
Need for revision
These fundamental concerns bring to us the reasons why to revise
and update the General Plan's Circulation Element. As road
financing, land use, and public transportation issues have changed
over time, the original ~;~.xculation ~ Element can no longer ade-
quately serve to help guide the County's transportation goals, objec-
tives, and policies for the long term.~l~ A formidable challenge
to the County's Circulation Element is to clearly indicate how
we intend to maintain and develop a transportation system which will
help to improve vur quality of life here in Butte County.
utte aun y s Circulation lement was drafted in 1971.
-1-
This Circulation Element was prepared for Butte County by staff
of the Butte County Association of Governments (BCAG), who worked
in conjunction with the Butte County Planning Department staff.
The five cities of Butte County and the California Department of
Transportation were consulted throughout this plan's development
regarding their input and concerns.
1.1 grganizatiori 'of the Circulation Element
The Element is organized into three basic components and should be
read accordingly. The first comp anent, Part One-Basis for Policy,
is intended to be an analytical and descriptive basis for devel-
oping a transportation policy, and includes Sections l.0 through
6.0. The second component, Transportation issues and Policies,
is found in Section 7.0 and sets forth Butte County's countywide
and urban area transportation baa~.s, objectives, policies, and
programs to the year 2000. The Appendices contains additional
information and data supplements referred to by the previous text,
including the Element's environmental impact report.
1.2 Basic Planning Requirements
A number of state planning laws and regulations relate directly
and indirectly to the development of the Butte County Circulation
Element. Among these are state requirements involving the develop-
ment of general plans, local regional transportation plans, state
transportation plans and environmental impact review and reporting.
It is also important to coordinate transportation plans as they
relate to each city's general plan and its spheres of influence.
Also, consistency should be found between the Circulation
Element and the Butte County Regional Transportation Plan and County
Air Quality Plan. Although state planning requirements leave local
government's substantial discretion regarding the level of citizen
participation during preparation of their plans, an active citizen
participation program regarding planning issues is always a benefit
to the local planning process.
1.21 Genexal P-bans
Each incorporated city and county in California is required to
prepare and maintain a comprehensive general plan which sets forth
objectives, principles, standards, and plan p raposals regarding its
future development.(1) The general plan must contain nine mandatory
elements and must meet minimum standards in the law. One of these
required elements is a circulation element, which shall consist of
the general location and extent of existing and proposed major
thoroughfares, transportation routes, terminals, and other local
public utilities and facilities, all correlated with the land~use
tote sta utes cover~.ng oca planning laws are found in the
California Government Code commencing with Title 7 - Planning
and hand Use.
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element of the general plan. (:7.} The Ci.r.c.ulation Element must be consistent
with other portions of the Genera]. Plan 'and its elements comprising
of an integrated, internally consistent, and compatible statement
of policies.(2) It is the option of Butte County to combine
elements to its General Plan as long as they still comply with
the minimum requirements set forth for each of the mandated
elements.
Planning law requires that the County's zoning be consistent
with the General Plan. (~3) Zoning which is not consistent with
the General Plan shall be changed so that it is consistent with
the plan.
1.22 State and Regional 'i~ransportation Plans
Transportation planning agencies involved in developing and main-
taining Butte County's regional and countywide circulation system
include the California Transportation Commission (CTC) and the
Butte County Association of Governments (BCAG}. Caltrans is
responsible for implementing statewide policy of the CTC. Both
the CTC and BCAG are required to develop and maintain respective
state and regional transportation plans which rely on input from
local city and county government general plans, including their
respective circulation elements.
The major emphasis of the Butte County Regional Transportation
Plan (RTP} regards transportation improvements which are needed
during the next five years. New transportation projects that.
plan to utilize state ar federal monies must be included in the
RTP. Projects for maintenance, rehabilitation and reconstruction
are not included in the RTP.() The. Butte County RTP is prepared
and updated by BCAG and used as a guide for preparing BCAG's
annual Regional Transportation improvement Program (RTIP} and
Federal Transportation Improvement Program (FTIP), The Butte County
RTIP annually describes and sets priority for new transportation
pro}acts proposed and needed in Butte County during the next, five
year period, and the FTIP sets priorities for federally funded
transportation projects in the Chico urban area.
The planning relationship between the RTP and the County's Circu-
lation Element is parallel. The Circulation Element's countywide
guidance and programs, however, should precede and influence those
programs stated in the RTP. The principle differences between the
Circulation Element and the RTP is that the former is intended to
provide more long-term transportation planning guidance as part of the
County's General Plan while the later focuses on shorter term trans-
portation development programs that include both city and county plans.
~ overnment o e ect~on
(2) Government Code Section 85300.5
(3} Government Cade Section 858b0(a)
(4) Government Code Section 65082
-3-
State law has been interpreted to allow county circulation elements
and regional transportation plans to be written as one document, as
long as the mandated requirements of each plan is adequately covered
in th.e cQmfiaine.d docu~ent .. The Circulation Element should act as
a maj~br s,QUxce of ~nformatiori for future. RTP updates .
1.23 Environmental Requirements
The California Environmental Quality Act (CEQA) and the federal
Clean Air Act are the most significant pieces of environmental .
legislation affecting local transpo rtat~.on planning in Butte
County. CEQA requires that an environmental impact report (E.i.R.)
be written when a pxoposed action could have a significant effect
upon the environment. An E.I.R. is a public disclosure document
and compliance should lead to an attempt for complete and substan-
tiated information which describes the range of potential environ-
mental impacts that could be caused by a proposed action or project;
and the methods and extent of commitments to implement mitigation
of any significant environmental impacts. Some of the significant
environmental impacts typical of transportation projects include
cumulative impacts caused by growth accommodation, direct and indirect
impacts on air quality, noise, wildlife habitat, open space, scenic
quality, and water quality.
The Clean Air Act requires that non-attainment air quality areas
such as Butte County develop and implement a non-attainment air
quality plan which shows how to meet federal air quality standards
by no later than 1987. The Act affects transportation plans by
requiring that certain air quality enhancing transportation
planning measures be implemented if the air quality standards cannot
be met by cantxals on stationary and area sources and motor vehicle
emissions. Butte County is a marginal non-attainment area for ozone,
carbon monoxide, and total suspended particulate, but is pxesently
not required to implement any transportation programs to improve
its air quality to meet federal clean air standards.
1.24 Citizen Participation
Public participation and involvement in the planning process is
the keystone to an open and democratic pxocess of government,
The public's involvement through informative meetings, publicity,
and public hearings is an essential component to developing a
comprehensive general plan, including any of its mandatory elements.
To this end, the development of this Circulation Element included
a number of informative workshop meetings and publicity releases
throughout the County at the beginning of the formal public
review process.
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Section 2.0
EXISTING TRANSPORTATION SYSTEM
This section describes the existing Butte County transportation
system. The general physical situation and capacity of the
County's road; street and highway network is described, as well
as current pro grams involving public transportation, transportation
systems management, bicycle ridership, pedestrian access, aviation
and commercial goods transportation, including utility corridors.
2.1 Roads. Streets and Hi~hwavs
Roads, streets and highways provide the backbone to circulation
in and through Butte County. The following describes basic
characteristics of the County's road system, its traffic levels,
and maintenance programs.
2.11 Basic Road and Hi hway Network
Butte County's road and highway network provides land access at a
regional, countywide, urban area and local 1eve1. This network
is classified functionally in Section 5.0. Improvement stan-
dards and programs axe related according to the kind of traffic
service and accessabi:lity they are to provide, The functional
classifications described in Section 5.0 briefly include:
Prince al Arterials [urban and rural) - Including major
s a e ~g way rou es connect~n g utte County to the rest of
the region and largest infra-city streets.
Minor Arterials (urban and rural] - Including major urban
area streets an ig ways an ma}or rural roads and highways
that canned the County's cities, communities and many rural
population centers.
Collectors {urban major and minor rural) - Including roads
an s ree s w iG prove. a acCe55 rom oval streets and roads
to arterials.
I.acal Streets and Roads {urban and rural}
an s reefs t at provz a erect access to
not intended to service large amounts of
serving commercial and industrial traffic
local streets, but are built to different
commercial and industrial access needs.
- Including roads
properties and are
traffic. Streets
often function like
standards to serve
Figure I on the fallowing page illustrates the network of State
and County highways .and roads.
-5-
STA. c AND COUNTY HIGHWAYS AND ROADS
FIGURE I
STATE HIGHWAY
COUNTY RQAD
i AIRPORT
.i
In rural valley areas, arterials serve to connect communities and
rural service centers to regional arterials and larger communities
and cities. The main purpose of rural valley collectors is to
provide efficient farm to market access for agricultural goods,
services and commodities.
In the rural foothill and mountain areas, arterials provide the
direct surface transportation link between foothill and mountain
communities and major arterials and population centers located
in the Sacramento Va11ey. The only paved highways which cross
the mountains east of Butte County from the Sacramento Valley
are State Routes 3Z and 70.
There axe eight governmental jurisdictions in Butte County who
are responsible far public road maintenance and construction.
All total, there are approximately 2,230 public road miles in
Butte County, of which the Gounty is responsible for 1,377.4 miles,
Road miles by jurisdiction are listed in the following table;
Table 1
Road 'tiles in Butte County by Jurisdiction
Jurisdiction Road Miles
State of California 181,3
Butte County 1,377.4
City of Biggs 8.7
City of Chico 1x0.1
City of Gridley 21.7
City of 4roville 71.0
Town of Paradise 88.1
U. S. Forest Service 442.0
,~
Source: Butte County Regional Transportation Plan,
Butte County Association of Governments, 1982
The 1982 Butte County RTP estimates that there were slightly more
than two million average daily vehicle miles of travel (VMT) in 1978.1)
u e oun y egiona ransportation Plan, BCAG, 1982, pg. II-7.
_~,W
Travel in the County's rural areas accounted for 49.9 percent of
the total VAlT, while urban area travel accounted for the remain-
ing 50.1 percent, including; Chico, 26.8 percent; Orovi.lle, 13,9
percent; Paradise, 7.2 percent; and Gridley, 2.2 percent. Also,
1978 vehicle registration data for Butte County shows over 63,000
automobiles, about 2b,500 commercial trucks, and about 5,300
motorcycles. (1)
2.12 Traffic Conditions.
As expected, Butte County's busiest highways are those that serve
as urban area arterials in Chico, Orovilie and Paradise. Tn the
Chico area, a number of city maintained streets and a few county
maintained streets exceed annual average daily traffic (AADT)
counts of 20,000. Generally, segments: of mast 4-lane surface
streets will approach or exceed the 20,000 AADT level in Chico.
In Orovalle, peak traffic counts over 20,000 AADT occur on Orovilie
Dam Boulevard (SR 162) east of SR 70. Traffic volumes in the
remainder of the Oroville area are significantly lower than along
State Route i62. Peak traffic volumes in the Paradise area occur
an the Skyway between Pearson and Billie Roads. Traffic counts
on the Skyway in County jurisdiction at the southern and northern.
town Limits are both in the range of 10,000 AADT. In Gridley,
peak traffic volumes occur on State Route 99.
Traffic growth in Butte County has roughly paralleled population
growth since the early 1970's. The County's largest traffic
volume growth occurred in and between the Chico, Ornville and
Paradise urban areas during that period. Butte County traffic
growth is discussed further in Section 6.0 - Transportation Fore-
cast.
Presently, Butte County's arterial roads and highways generally
have adequate capacity to accommodate existing traffic volumes.
However, several major highways axe presently nearing capacity,
including State Route 99, south of Chico to Pentz Road; and the
Skyway, north of the Paradise town limits to approximately Coutolenc
Road, Tn Oroville, roadway constrictions caused by~.two railroad
overcrossings on Ora Dam Boulevard (west of Lincoln) present a
safety and capacity problem which is in need of immediate correc-
tion. Another existing safety problem occurs at the histor~.cal ,
but narrow, Gianella Bridge on State Route 32 at the Butte-Glenn
County lane on the Sacramento River. Other existing highway improve-
ment needs are related to road maintenance and safety projects in the
County. Future road and highway needs and forecasts axe further
developed in Section 5.0.
Butte County Regional Transportation Plan, BCAG, 1982.
-7-
~~.13 Existin l~Ti ,hway Construction and maintenance Pro rams
Highway construction and maintenance programs respond to existing
highway needs in two general ways. First, there are on-going,
unscheduled road programs that respond to maintenance needs caused
by unpredictable road wear or failure, damage from accidents or
vandalism, or damage fxom natural events such as floods, wind,
slides, and freezing temperatures. Second, there are scheduled
road maintenance and construction programs which respond to planned
roadway maintenance and safety improvements, as well as to demands
for new roads and capacity increases. In recent years, the
availability of local, state and fedexal road funds has often
been a majar constraint to implementing an adequate and timely
road maintenance and construction program. Respective city, county
regional and state governments in Butte County each develop annual
or-semi-annual road maintenance and construction program schedules
for xoadways antler their jurisdiction.
At the state level , Caltrans~ annuall~r updates and su~%ts to th.e
California Transportation Commission (;CTC)- a proposed State Trans-
portation Improvement Program (PSTTP), tFie CTC adopts a final
STIP annually, as described in subsection .l.22. The Butte County
Association of Governments (BCAG) is responsible for a number of
countywide planning concerns, including ai.r quality planning and
regional transportation planning. Part of BCAG*s responsibility is
to prepare and update the County's Regional Transportation Plan
(RTP), and Regional Transportation Improvement Program (RTIP), as
mentioned in subsection 1.22,
Also, at the County level, the Public Works Department is responsible
far proposing a list of priority rural road projects which are anti-
cipated to be funded by federal secondary road funds (Federal Aid
to Secondary - FAS). Butte County's FAS priority list currently
presents one project per year. The FAS priority list is included
in the RTP. The County's FAS designated roads are indicated by
Figure 2.
In urban areas, streets and highways which serve as major arterials
or collectors are usually designated as Federal Aid to Urban (FAU)
routes. Projects on these urban streets and highways may be proposed
for federal FAU funding.
2.2 Public Transportation
The level. of public transportation service in Butte County increased
dramatically in 1981 and 1982 with the start-~up of three fixed route
and scheduled bus systems. The intercity Butte County Transit System
(BCT) began service in June, 1981, by providing weekday service
between the communities of Chico and Oroville, Chico and Paradise,
and Oroville and Palermo-Gridley-Biggs. The Oroville Transit System
(0 TS) began serving the Oroville urban area in July, 1.981, with a
weekday, 2-bus, fixed route system. The Chico Area Transit System
began serving the Chico urban area in February, 1982, with a five
route, full week bus service.
-8-
Figuxe 2
Fedexai Aid to Secondaxy Road System
{see jacket}
The first year of operation was highly successful for the $CT
system as ridership increased steadily into the second year,
exceeding minimum fare box requirements -set by the state. (1)
By the second half of 1982, SCT commuter ridership had increased
beyond the capacity of the system and temporary relief was sought
by a bus sharing agreement with the City of Chico which made larger
30.-passenger Chico buses available while the Co~~:xnty applied for
funding of larger buses. It is estimated that BCT carried about
1.5 percent of all personal trips between Chico and Paradise and
near 2.0 percent of the personal trips between Chico and Oroville
in 19$2.
The bus systems serving the Chico and Oroville urban areas have
experienced increasing ridexs}iip rates since their start-ups. The
Chico system should continue to expand its ridership as a result of
improved routing and scheduling. The Oroville system has had
steadily improving fare box revenue since its start-up.
Other public transportation programs currently in Bubte County
include the following:
Chico Clipper - This is a taxi dial-a-ride service to the elderly
and handicapped and operates daily in the Chico area.
Oraville Express - This is a dial-a-ride service to the.
elderly and handicapped and operates daily in the Oroville area.
Paradise Express - This is also a dial-a-ride service to the
elderly and handicapped and operates daily except 5unday,~ in
the Paradise area.
Gridley Golden Feather Flyer - This daily dial-a-xi de service
operates in the Gridley area,
The only private bus carrier operating in Butte County is Greyhound
Bus Company, which serves Chico, Gridley, Oroville and Paradise an
a re gional and state-wide basis. Traditionally, the California
Public Utilities Commission (PUC) has set routes far private inter-
state bus, companies operating ~vithin the state on t}ie basis of
providing much needed re gional and state-wide bus connection to
the state's small, rural communities. ~tawever, the federal Bus
Regulatory Reform Act of 1982 allows these bus companies to .cut
or reduce service an unprofitable routes such as those serving,
lightly populated rural areas. Tl~e immedate affect has been far
companies like Greyhound to begin drop}ping smaller, remote commun-
ities from their service and reduce service to other cities. The
full implications of the Bus Regulatory Reform Act on Butte County
is still unclear.
pera Ong a a or isca ears 1983-82, 1982-83 to 12/31.
-9-
Regional and state-wide passenger rail connections are provided by
Amtrak, with its twice-a-day stop at Ghico. Butte Count}r began
receiving Amtrak services after spring, 1982, Evhen the re-routing
of the Coast Starlight [Seattle to Los Angeles) included mare
heavily populated east side Sacramento Valley communities including
Chico, Marysville, Roseville and Sacramento. The effect of the
re-routing was to increase mid Sacramento Valley patronage by about
a third during the first six months.
2.3 Trans ortation Systems Ntana~;ement
Transportation Systems Management (TSP~!) is a composite term used
to define a variety of transportation programs which help to make
better use of existing services and facilities. The benefits of
TSM are realized through increasing system efficiency while
decreasing capital. costs. TSM includes such transportation concepts
as ridesharing and carpooling, park-and-ride lots, traffic flow
improvements and signal synchronization, and bimodal integration
and route scheduling between public transit, ridesharing and urban
bicycle programs.
Caltrans has also constructed a limited number of bus turnouts
and shelters on state highways in butte County urban areas. The
cities of Butte County have been active, as the need arises
with traffic flow improvements and signal synchronization.
Formal park-and-ride cats have been constructed on State Route 70
at Grand Avenue in Oroville (JO parking places and 4 bike lockers)
and on State Route 32 at Fir Street in Chico (44 parking places and
8 bike lockers). Also, Caltrans has identified eleven informal
park-and-ride lots along ox near state highways in the County,
as indicated in the following table:
Table 2
Informal Park-and-Ride Lots on State Highways in Butte County
1. SR 7D at Robinson's Center (southwest side),
2. SR 70 at Palermo Raad (gravelled lot on southeast corner).
3. SR 70 at Oroville Dam Blvd. [in front of Caltrans Maintenance
Station.
4. SR 70 at ~~gontgomexy Street (on gravelled shoulder).
5. SR 7D at SR 149 (an gravelled shoulder}.
6. 5R 99 at Edgars Slough and Skyway (on gravelled shoulder).
7. SR 99 at Pentz-Durham Road (on soft shoulder).
8. SR 99 at SR 149 (parking on gravel),
9, SR 99 at SR 162 {parking on gravel).
1D, SR 32 at Bartlett (along street and in adjacent lot at Shell
Station.
ll. SR 99 at East Park Ave. (paxking along street) .
Source: Park and Ride Locations tivithin District 03, Caltrans,
January 22, 1981.
-.lD-
Galtrans' ridesharing program has consisted of ridesharing matching
efforts at Chico State and at Butte College for students and faculty.
Butte County has not been formally involved with ridesharing matching,
to date.
Two bills were passed by the state legislature in 1981-82 which are
important to ridesharing:
SB 321 - The bill creates financial incentives for employees to
rideshare while reducing the cast to employers. The bill includes
employer tax credits, accelerated depreciation and other tax bene-
fits to employers providing ridesharing inducements to their
employees.
SB 320 - This bi11 will allocate funds to the Butte County Associa-
tion of Governments for the purpose of implementing ridesharing
programs. The first allocation was expected to occur in March, 1983,
and annual allocations will be wade each July 1st through 1987.
The estimated 1983 allocation to Butte County was $22,394, but has
been cut in the Governor's 1983-84 state budget,
2,'4 Bic cle Ridershi
Bicycle ridership offers citizens one of the cheapest and mast
efficient forms of transportation, particularly within urban areas.
Bicycle ridership for work and school commuting, general utility,
and recreation has increased significantly throughout the County
during the last decade.
Bicycle ridership rates in the Chico urban area are by far the
greatest in the County due to the role of Ghico State and the urban
area's more compacted and young population. The City of Chico has
designated specific streets as bicycle routes and recently estab-
lished improved on-street bicycle parking facilities in its down-
town area. It is estimated that average daily bicycle ridership
constitutes 4 to 8 percent of the total trips in the Chico urban
area during the six month (May through Octobex) warm season.
The 'Yawn of ~'aradi.se and the Cities of C}rovzlle and Chico have recently
completed bicycle plans. At present, there are no rural bicycle
programs in Butte Gounty.
I'or planning purposes, bicycle routes are categorized into three
classifications. Class I bike routes involve lanes where the
right-of-way is physically separated from competing motor vehicle
and pedestrian conflicts. Class II bike routes involve the marking
and striping of separate bike lanes along existing streets. Class III
routes involve the signing and assignin;~ of local and co3lector
streets as bike routes.
..11
2.5 Pedestrian Acs . as
Separation of pedestrian and vehicle traffic is required by
safety considerations, but af~en the result is to reduce pedestrian
access and mobility in lieu of vehicle traffic. Issues related to
pedestrian access are almost exclusively found in urban situa-
tions and pedestrian planning usually occurs on a case-by-case basis
while conforming to general development standards set by the public
agency of jurisdiction. ,
b{ost often, pedestrian access is relegated to the issue of provid-
ing sidewalk construction along city streets. Pedestrian eonsidex-
ations are also important site planning concerns when developing
large commercial and employment centers. The issue of pedestrian
corridors for intracity recreational opportunities is one that has
emerged recently in the Town of Paradise, in that a system of foot
trails are called for in the community's general plan.(l) Similar
long-term opportunities exist along water courses in the Chico urban
area such as Little E~hica ~:reeK and Lindo Channel and the Feather
River around Oroville.
2.6 Aviation
Aviation serves three purposes in a region like Butte County.
First, commercial service provides fast and easy access to other
regions by providing connection to major air carriers at metro-
politan airports. Second, general aviation facilities meet the
needs of private aircraft users for commercial and recreational
uses. Third, aircraft are an indispensable tool for the County's
agricultural sector.
The major airports in Butte County are owned and operated by city
government, including the Chico Municipal Airport and the Oroville
Airport. Ievelopment and maintenance of these two airports are
the responsibility of their respective city governments and airport
land use plans are required for each facility.
The Chico airport is classified as a &asic transport airport
{including capacity for scheduled commercial service} and fi as
a 7~,ighted and paved parallel runway with a precision electronic
approach system. (2) The Oroville airport is classified as a
general utility airport and has a lighted and paved single and cross-
wind runway. Two privately awned general aviation airports are loc-
ated in Butte County and include Ranchero airport west of Chico, and
Paradise Sky airport southwest of the Town of Paradise. Bath of
these private airports axe classified as public use airports- and
consist of a single paved runway without electronic approach systems.
In 1980, 149 aircraft were based at the Chico airport, 55 at Oraville,
28 at Ranchero, and 23 at Paradise Sky.{~) The Chico airport
recorded approximately 80,000 takeoffs and landings in l9$l.
As Butte County's only scheduled commercial passenger airport, the
Chico airport has been subject to a number of recent service changes
because of national deregulation of the commercial airline industry
and the 1981, air traffic controllers strike. Airline deregulation
left Chico without a major commuter air carrier as
{1) Town of Paradise General Plan. 1982
{2) The California Aviation System Plan, Volume II, May, 1981, App. C
,.,, T, • , ~ _ ~ _ _ _
larger airlines concentrated the focus of their service in larger
metropolitan areas, Chico is now served by two smaller commuter
airlines; West Air and Pacific Express. The air traffic controllers
strike forced closing of the Chica control tower in 1981 and it has
not been reopened to date.
State law requires airport plans, including for airport land use
and clear zones, to be developed for general purpose airports
such as Chico and Oraville. These plans are to be adopted by the
County's Airport Land Use Commission (ALUC), which is the County
Planning Commission. The City of Chico developed an airport
environs plan for Chico Municipal Airport in 1978 and a similar
plan far the Oroville airport is now being developed. Butte County
presently does not exercise controls on the location, development,
and use of private airstrips and landing fields, althouth a use permit
is required. Controls should be developed to ensure that private air-
s~rips do not permanently preclude use of prime farmlands, that they
are outside of the flight paths of existing airports, and that they do
not provide a hazard or annoyance for neighboring areas.
2.7 Commercial Goods Transportation
Trucking, rail, and gas and electrical utility transmission corridors
constitute the bulk of the transportation of commercial" goads
transported in and through the Butte County area.
2.71 Trucka.n
It is estimated that trucking accounts for approximately 10 percent
of the average daily traffic on Butte County's major state highway
network.
2.72 Railroads
There are presently three railroads serving the Butte County area,
including Southern Pacific Railroad, Western Pacific Railroad, and
Sacramento Northern Railxoad,(l) Both the Southern Pacific and
Western Pacific traverse through Butte County near State Routes 99
and 70 respectively, and the Sacramento Northern terminates near
the Chica Municipal Airport after serving Durham and points south
in Sutter and Yuba Counties (see Figure 3).
Southern Pacific's rail system in Butte County consists of 45.6
miles of main line and 8,8 miles of branch line servicing both
through freight and local service to Chico, Gridley, and O.roville.
Typical daily operations consist of approximately l0 through
freight trains, 3 local freights, and 2 Amtrak passenger trains.
e ou ern acr is ransportation Company is parent company to tie
Southern Pacific Railroad. The Union Pacific Railroad Company
.is parent to bath Western Pacific and Sacramento Northern
Railroads.
l 3-
Fi gixre ~
Railroads and Utility Corridors
(see jacket)
tVestern Pacific's railway mileage consists of 54.E miles of main
track with spurs itiThich service Oroville. Recent typical daily
operations consist of eight to ten through freight trains which
vary considerably in size. Both Southern Pacific and Western
Pacific freight shipments have declined recently due to economic
conditions.
The Sacramento Northern spur originates in Sutter County to
provide local shipping to Durham and Chicn. Freight traffic an
this line has declined significantly duxing the last year,
primarily due to a shift to local trucking brought about by recent
deregulation of that industry.
2.73 Gas and Electrical Utilit Corridors
The large scale transportatinn of natural gas and gasoline by pipe-
line and electricity by transmission lines must be considered in a
circulation element.
Pacific Gas and Electric Company (PGF~E) provides piped natural
gas to all of Butte County's larger urban areas and also to the
communities of Durham, Richvale, Palermo, Biggs and to Butte
Community College, as shown in Figure 3. Areas of higher popula-
tion density not served by PG~E include Paradise Pines and Oroville's
eastern foothill planning area. Natural gas lines also service
several natural gas production fields in western Butte County.
The main natural gas line through the Sacramento Valley, which
connects the PGFE service area to Canadian gas fields, is located
in the western portions of the Valley, west of Interstate 5.
Gasoline is piped into Butte County from the south (from Bay area
refineries) to the Chico tank farm near Hagen Lane and the ~9idway,
and is distributed from this point by truck. Southern Pacific
Transportation Company is owner of both the gasoline pipeline and
tank farm facility.
PGF~E, the California Department of ~Vater Resources {D{VR) , the
iVestern Area Power Administration (~v'APA), a branch of the U.S.
Department of Energy, and the Oroville Wyandotte Irrigation District
(OWID}, are each responsible for portions of the major electrical
transmission lines that cross- through or originate in Butte County.
PG~E operates and maintains the bulk of the transmission line
system in Butte County. Nearly all of the electricity passing
through or generated in Butte County is routed through PGF~E's
Table riiountain substation or the smaller Palermo substation {see
Figure 3). Major PGFE transmission line corridors in Butte
County include two parallel 500 KV lines running from the Tehama
-15-
County line in the Tower faothills to Table Mountain (servicing
the Pit River Project and Pacific Inter Tied, five lines totaling
920 KV running from the Feather River Canyon (Feather River project)
to both Table Mountain and Palermo, and two 115 KV lines which
connect the Chico area and Table Mountain. PG~E transmission
lines which generally transmit electricity to population centers
south of Butte County include three lines totaling 1230 KV from
Table Mountain, two 115 KV lines from Palermo and a single 230 KV
line from the Rock Creek Substation in the Feather River Canyon.
The DWR operates and maintains three lines from its Lake Oroville
Hyatt powerhouse Catalina 690 KV, which lead directly to the
nearby Table Mountain substation. The DH'R also operates lines from
its Thermalito forebay powerhouse to Table Mountain.
The federal WAPA operates and maintains a single 230 KV transmission
line system which runs the entire north-south length of Butte County
and traverses an area near the break in slope between the Sacramento
Valley floor and the faothills. The O~VID operates and maintains
a ll5 KV line from its South Fork Project to Palermo.
-1G-
SECTION 3.0
TRANSPORTATION AND ENERGY
No energy use is mare impart ant to ~3utte County citizens than that
fox transportation. Nearly all of our business and trade activity
somehow depends on the movement of people and goods, and this
requires substantial amount a.f petroleum dependent transportation
fuels. Tn the last decade, with its oil embargos and dramatic energy
price increases, there has been a growing public awareness and some
adjustment to the role played by energy availability and pxice.
~ioevever, we still do not have a clear view of the size ox timing of
future energy pxoblems, or of future energy costs. The importance
of adequate transportation energy supplies cannot be dismissed in
transportation planning and, therefore, this section serves to provide
information and input which could assist in developing transportation
objectives and policies.
In addition to the tremendous impart ante of easily accessible and
relatively low cost transportation fuels to our local economy, the
availability of transpoxtation energy is also important in maintaining
our sense of mobility. Also, cextain land use patterns became more
or less attractive as transportation energy cast and supply scenarios
change. A past era of low cost petroleum with its nearly unres-
trictive supply has dramatically influenced how our present-day
land use and transportation patterns developed. It is, therefore,
imperative that discussions considering land use and transportation
planning, consider, as best they can, the implications of energy
to our transportation future. The goal of having a future of safe,
efficient, and well maintained streets and highways and an adequate
public transportation system cannot be separated from transportation
energy concerns.
3.l Energy Use in Transportation
The significance of petroleum to our transportation sector can be
appreciated by the fallowing facts:
Petroleum accounts far 97 percent of the energy used in California
transportation and even more in semi-rural Butte County.
The private automobile uses about b0 percent of our total trans-
portation energy budget statewide,(1) Passenger travel consumes
about 70 percent of the nation's transportation energy and goods
movement accounts for about 25 pexcent,[2)
In California, the transportation sector uses 62 percent of all
petroleum used in the state. Petroleum accounts far bl percent
of all energy used in the state.(3) California transportation,
alone, consumed 4T percent of the state's net energy supplies
in 1981.(4)
-17-
Annual. gasoline consumption in Butte County is estimated to be
approximately b0 million gallons.(5) T;ie relative value of this
investment is slightly more than that of recent Butte County
government budgets.
Given the fact that there is no immediate large scale alternative
to automobiles. for many personal transportation needs and that
approximately 8D percent of all statewide person-miles traveled
are by auto (even mare in Butte County), petroleum will remain
the key to fueling the transportation sector throughout the remainder
of the century. The potential ramifications of a serious shortfall
of petroleum supplies would have severe. adverse affects ppon
personal transportation and upon the economy, as a whole, i.f
prolonged. (6)
3.11 Energy and A~[obility
Fundamental tv the transportation planning process is the need to
keep .our society's mobility and reduce congestion. Moreover, our
current transportation system has deeply affected the physical struc-
ture of our society as well as social convention in everything from
mores to funerals. The automobile has shaped modern cities, creat-
ing suburban environments where personal vehicles are essential for
the most basic functions. (7) Citizens prize the sense of. personal
freedom and mobility offered by the automobile.
Large amounts of personal travel are indispensable and citizens have
shown a continued willingness to invest significant amounts of their
income in travel. The fraction of each person's disposable income
invested in travel~~kas actually increased in recent years and is
now estimated to be more than 14 percent, despite significant reduc-
tions in gasoline demand since 197$.(8) One particularly intexesting
feature of statewide travel demand is the increaser g use of light
duty pick-ups far personal travel.
a i ornza nergy ommissaon, 1 Biennial Report, p. bl.
(2) U.S. Congress Committee on Energy and Commerce, Report on Buildin g
a Sustainable Future, Vol. 1, April, 1981, p. 13Q.
(3) California Energy Commission, 1981 Biennial Report, Figure 1-1
California Energy Consumption 1979.
(4) California Energy Commission, Forecast of California Car and
Truck Fuel Demand, January, 1983.
(5) Letter from California Board of Equalization to Butte County
Planning Department, September, 1982.
(b) See Impacts of a 6, 12, 25 and 49 Percent Shortfall in
Petroleum Supplies on the U.S. and California Economies,
prepared for the California Energy Commission, Laxry J. Kimbell,
Ph,D, UCLA Business Forecasting Project, January, 1981.
(7) U.S. Congress Committee on Energy and Commerce, Report on Building
a Sustainable Future, Vol. 1, April, 1981, p. 122.
(8) Ibid~ p, 132.
-'iR-
,A study of national driving habits indicates, as expected, that
people in upper income groups use relatively less of their discre-
tionary income on automobiles than people with low incomes.(1)
Higher fuel prices will place a disproportionate burden on low income
people. This group uses a much higher percentage of its in came for
transportation energy than any other income level. Unless properly
mitigated, *_his inequity could compound a multi-decade trend of
decxeased mobility far the poor, elderly, and physically handicapped
driving in and between urban axeas. As with most social welfare
issues, there are no easy ar clear solutions to these transportation
hardships. Butte Gounty~s response to these problems currently
involves low income transportat-;ion assistant grants, dial-a-ride
services for the elderly and physically handicapped, and subsidized
bus services.
3.2 Efficieney~and Conservation Aspects
As mentioned in previous sections, Butte County's street and highway
system represents an enormous long-term public investment. However,
putting this investment to good use in the future by ensuring the
freedom of mobility which low-cost transportation has provided for
many years will require skillful use of many efficiency and conserva-
tion technologies that are already in hand. Conservation is a
necessary component to the efficient utilization of the enormous
investment contained in our current transportation system, both
publicly and privately. The immediate and cheapest opportunities to
maintain mobility while reducing energy use is through conservation.
In contrast, it is clear that rising fuel prices are always most
harmful. where efficiency is lowest. This plan makes the basic
assumption that citizens will respond favorably to market demands
and incentives that promote increased automobile efficiency and
transportation fuel conservation, if given the opportunity, during
the planning period. This assumption is very important to many
Butte County residents because of the higher rate of automobile
dependency required in semi-rural xe gions.
3.21 Automobile EfficiencyW-and Fuel Demand
Increasing automobile efficiency leas had a substantial effect on
reducing the fatal amount of gasoline consumed since 1978. The public
has been both driving less and buying more efficient vehicles
that use less gasoline, To further illustrate; a typical, 1981
model car was 61 percent more fuel efficient and produced one-.tenth
the pollution of the typical 1974 model auto.(2)
Federal law currently requires vehicle manufacturers to produce
automobiles and light trucks in compliance with an industry-wide
(1) U.S. Congress Committee on Energy and Commerce, Report on Building
a Sustainable Futuxe, Val. 1, April, 1951, p. 130-132.
(2) California Energy Commission, 1981 ~iiennial Report, p. 207.
-19-
schedule of gradually increasing annual Corporate Average Fuel Economy
(CAFE) standards established by the U. S. Department of Transporta-
tion. The CAFE standards for automobiles are to culminate in a
corporate average fuel economy of at least 27.5 miles per gallon _
{mPg) in 1985, It is entixely possible to extend fuel and consumer
savings by developing further progxams far vehicle efficiency to ut
least 40 mpg by 1995. Butte County and the area's federal and state
representatives should support such programs, as to the long-term
local benefit gained from vehicle efficiency programs. Many vehicles
exceeding 40 mpg efficiency axe already on the market and certain
low cost light weig}at automobiles yet to be marketed in the United
States exceed rates of b0 mpg. (1)
The potential consumer savings due to increased fuel efficiency
standards is further underscored by the fact that gasoline savings
of about 20 percent are typical when autos are driven at 55 miles
per hour (mph} instead of 70 mph. (2)
At present, it appears that a shift to mast types of mass transit
systems (with the exception of van and car pools) will not result in
major energy savings.(3) The objectives of public transit programs
should be to assure the continued mobility of transportation disad-
vantaged persons and to serve the need fox basic urban and intercity
commuter needs.
3.2Z Extending Highway Capacity Through Transportation Efficiency
There are a number of techniques for potentially increasing a trans-
portation system's localized street and highi,~ay capacity without
resorting to extensive roadway expansion. Together, these tech-
niques apply transportation system management (TSM), and generally
requixe little ax no increase in local government expenditures while
providing an increase in traffic capacity, locally. ~In addition to
the potential to increase local traffic capacity, TSb'f techniques
usually provide small increases in transportation fuel efficiency.
The follo~,ring are a few of the TSr1 techniques available for use by
Butte~County and other local governments:
(1) An example of such light weight automobiles would be Ronda [~~otor
Company's 4-passenger "fionda City" model which is presently blocked
for sale in the U.S. by voluntary auto impart xestrictions.
(2) It should be noted that gasoline costs account for about 25
percent of the cost of running an automobile. .0.s expected, this
percentage generally increases with increasing weight of similax
model year's autos.
(3) U.S. Congress Committee on Energy and Commerce, Report on Buildin g
a Sustainable Future, Vol. 1, April, 1982, p. 128.
-20-
Integration of routes and schedules of different transportation
mades,~ including for public transit, ridesharing, park and ride
lots, and urban area bicycle programs.
Impxove roadway design and the ways it is used. Examples include
better roadway grading, separation of competing traffic modes
where required for safety purposes, xeducing traffic friction in
areas of heavy strip commercial development, and providin g
extended center turning lanes in commercial strips.
Expand public transportation to meet growth demands. Transit
growth could represent a capacity expansion which could absoxb
part of the expected additional travel demand. Also, reducing
need for travel through Land use planning tools could represent
a similar increase in capacity. (1)
. Improvement in traffic control systems and synchronization. An
average car achieves optimum energy efficiency by maintaining
a constant speed between 35 and 45 mph. Typical city street
traffic, however, is characterized by frequent stopping and
starting, which reduces energy efficiency and increases vehicle
emission rates,(2)
Individuals can also help to increase city street capacity by
planning their auto trips as efficiently as possible,
3.3 Transportation and E~~ergy Related Assumptions
Transportation, energy, and economic issues are all linked. Funding
for the Butte County's transportation system must give greater
consideration to energy efficiency than in the past. The following
are some of the energy related assumptions that are considered and
incorporated into this plan's strategy section.
1, Major increases in travel are predicted in Butte County
during the next 15 to 2O yea.rs(3)
(1) For an example of hose coordinated transit and land use planning
can help reduce projected traffic capacity, 'see the Rancho Arroyo
Specific Flan, Chico, ~+•Iay, 1982,
(2) California Energy Commission, 1981 Biennial Report, p. 65.
(3) Vehicle miles traveled (VMT) are forecasted to increase between
50 and b0 percent in Butte County by year 2000. Truck V~4T
will increase slightly faster than for automobiles.
°21-
2. The price of gasoline will rise by an average annual rate
of 3 percent greater than the inflation rate. (1) Federal,
state, and local taxes on gasoline to pay for maintaining and
constructing our transportation system will increase substan-.
tially during the planning period.
3. Gasoline demand will continue to decline slowly during the
planning period, despite mare vehicles -and increased vehicle
miles traveled (VATT} in Butte County.(2) Increases in
vehicle fuel efficiency and the efficiency of personal txans-
portation choices and modes will be chiefly respansible for
declining gasoline demand, It is assumed that the automobile
fleet will average at least 40 mpg by the late 1990'x.
~. The average weight of passenger vehicles will continue to
decline during the planning period.
5. It is assumed that it takes about ten years for a rise in
the price of oil to have its full effect on improving energy
efficiency in business and for personal use.
6. Periods of energy price plateaus will not be a disincentive
to further energy conservation, although the xate of conserva-
tion will slow during these periods.
7. The transportation sector will continue to be highly dependent
on petroleum throughout the planning period. 0i1 will be
increasingly used fnr only those purposes to which it is best
suited.
(1)
(2)
California Energy Commission, Forecast of California Car and Truck
Fuel Demand, Chapter I: Summary, January
Statewide gasoline demand is forecasted
one percent per year during most of the
declines in gasoline demand to year 2000
on the extent to which existing fual eco
lagies are implemented.
1983, p. 1.
to decline approximately
1980'x. Additional
will depend
nomy improvement techno-
-zz-
SECTION 4.0
FINANCING ISSUES RELATED TO BUTTE COUNTY'S TRANSPORTATION SYSTEM
The following section deals fait}~ financial issues affecting Butte
County's transportation. planning efforts over the short and long-
term course. This section should be used in conjunction with
background discussions found in sectians~an existing and future
transportation needs and road classifications and standards,
4.1 Past and Present Financing
}iistorically, Butte County's transportation system financing has
come from a mix of federal, state, and local government revenue
sources. However, beginning with 1) ,tlie 1978 passage of Proposition
l3, irhich significantly reduced property tax revenues for California's
local governments, and followed by 2) a trend of reduced federal.
and state road designated funds caused by a sloiti~ed. economy and
significant declines in basoline usage since 1978, coupled with ~)
rapidly inflated casts of road maintenance and construction, Butte
County and its cities have been faced with increasing revenue
constraints which have negatively impacted traditional rates of
road maintenance and construction.(l) In Butte County's case, budget
constraints have lead to the complete elimination of the use of
non-restricted road Monies for road maintenance and improvement
projects. In fiscal year FY 1982/83 motor vel~.icle in-lieu funds
were eliminated from .funding Butte Count7r road operations for t}~e
first time, as this revenue source was needed elsewhere to fund
County operations. r'Llso, federal road maintenance and construction
apportionments for bath Butte County's urban and rural areas have
declined slowly during the last several years. This overall decline
in revenue for local trar-spartation projects has led to a sharp
slowdown of needed Butte County road maintenance projects and a
near halt to any traditionally fu~~ded new road canstruction in
the near future by the County.
As a result of declining; revenues, Butte Count}T's FY 1982/8 road
maintenance and construction was funded exclusively from road
specified sources, this for the first time in recent years. Two
revenue sources, the highway users [gasoline) tax and Local
Transportation Fund from sales tax, accnuYitecl for al~pxoximately
77 percent of the County's road maintenance and construction
revenue, The following table shaves tl~.e FY 1982/83 revenue hreak-
do~ti~n for the County Public 1~'orns I}epartment's road maintenance
and canstruction operations.
n a loll in iig way cons ruction and maintenance casts has
risen al}1?xoximately 250 percent in 10 years . Gas tax revenue
}lad increased a mexe 24 percent in the same 1~eriacl, prior to
1963.
-23-
Table 3
Estimated butte {:aunty I'.oad ;(aa.ntenance and Construction Revenue
FY 1982/S3
Source Amount % of total
iii~hway Users X2,071,593{1) 44.7
Forest Reserve 215,000 4.6
IIUD Funds S9,b0a 1.9
TDA Funds I,490,8b1(2) 32.2
I'~Iisc. Sales 18,000 --
Road Permits 230 --
Interest 30,000 0.7
Fines and Forfeitures 270,000 5.3
PAS 450,000 9.7
Total 4, G:~5, 384 100, 0.
nc u .es a , ~ a 215 funds .
(2) Includes carryover from Previous fiscal year.
-Z4-
The only revenue categoxy expecting any significant increase
i.n the near future is the highway users tax; this due to new
state (SI3 2I5) and federal tax:>~s on gasoline during 1953. Future
increases in TUA funding, a:tc' .fines a:td forfeitures are exL~ected
to parallel x oI?ulatian l;rotrt.l a~ld inflatiolz rates, so the net
gait to the Co~~:tt}''s road prograr=1 revenue gill lue minimal.
Future federal F'A5 revenues are extremc~l}T difficult to forecast,
in that allocations t~~ill clel}er~d lamely on future federal. laudgets,
nationwide road and transit priorities, anu the future state of
the economy and revenues frog, gasoline sales. Forest reserve
revenue,- which result from timber and recreat~.oii revenues from
Lassen and I'lumas ~.ational Forests in Butte County, are expected
to continue declining slightly as To€;ning act~.vity in t}le area
slowly declines. llCJll (l;.S. liousing anti ~lrban Development)
grants, for road reconstruction in blighted areas, are expected
to play a minor role in the overall future of I3titte Cot.inty's
raad maintenance program, as are federal bridge rei~abilitation
funds. The above discussion anti I3rojection of poor pros~~ects
for substantially increased road revenues to balance I;utte
County's current raad maintenance needs leads to a forecast of
future years of increasing road maintenance deficits iit t~~ie
County, as discussed later in this section.
Public and specialized transportation system funding for k3utte
County and its CitleS Itad historically came from the Transpor-
tation llevelorment Act (TDA, SB-325) wi~ich has been in existence
since 1972. lie ginning in 1979, fwlds become avail able under the
State Transit Assistance I'rogra.m (STA) .
The public transit systems in Butte County use a mix of TT}A and
STA funds far their operations. Chico Area Transit System buses
and their ancillary equipment were purchased utilizing an UN1TA
(Section l8} grant in conjunction with local transit funds.
during FY 1982/83 approximately ~5~8,600 of transit funding was
utilized to operate public transportation programs b}~ Butte
County.
Under the 1982 Federal Highway lmnravement Act, tiMTA. Section 4
................
_..-..-funds ._are. _available. for .public _transportation systems that serve
an urbanized area of 50,000 or more. Section 9 funds are to be
used for capital improvements and operating costs for urban public
transit development. Recent annual appropriations for the Chico
urban area have been in the range of $400,00+. UMTA Section 18
monies are now utilized for public transportation systems and services
outside of urban areas. Section 18 has helped to finance capital
improvements and operating costs of BCT and OATS. Section 18 is
also used for other demand oriented transit services such as dial-
a-ride programs.
The 1983 increase in the federal gasoline tax will benefit urban
public transportation systems such as the Chico Area Transit System,
by ensuring a stable source of federal transit funds in future years.
-25--
Funding of bicycle fac~.lities and planning can came from a variety
of local, state or federal sources. Local street and road revenues
and general revenues can be utilized. The state Bike Lane Account is
reserved by Caltrans fox grants to Iacal governments for development of
bike lanes and bike ways, It should be noted that TDA and FAU monies
can also be used for bike lanes-and bicycle planning.
4.2 Cast pac.tors in r~iaintainin~ t:~e County P.oad System
Tie understanding of ;io,~r ciif-Ferej~t road maintenance and constxuc-
tian one rations vaxy ~~it;i res~~ect to casts is ir.~~ortant when
considering aiicl t~valt~ating ciifforent objectives, policies and
~~rograms contai.nc~d in the Trans~artatian L1ersci7t. Poad:.~~y costs
discussed belo~ti' are ~;~;»eralizeci and based on 1J82 dollax estimates. {l}
Butte County maintains apr~raximately 1377' miles of roads w~~icji
average approximately :~:i0,~300 iii value per mile. T]~is ti~auld
place the 1082 value of 33utte County's raadtitia)rs at appraxir.~ately
~b9 ntillio~x. Tlie estimated value of state hi ;ht~~ays, streets in
city jurisdictions, and private roaci~~ays are not iizcluci~:cl i3~ t;Iis
figuxe. The per mile value of t;Ie state highl•;ays is considerably
hig~Ier t~xan for Y,utte County roadways 'uecatase of Ir'~uci~. 'nin)ler aver-
age design standards and maintenance reciilirelnents. Slightly aver
800 Miles of Butte Cvunty maintained roadways are raved, while
tl~e remainder are dirt or gravel.
idew roadway construction costs, including for substantial recon-
struction of existing raads, average approximately ~.iS0,g00 per
mile for a standard width 2-lane road. This average cast varies
greatly with terrain. I•t is estimated that a net~r 2-lane road
on the valley floor -,ri11 cast an average of $100,ggq per mile;
while the same roadway will cost approxi~t~ately ~25D,Ogq per mile
in the foothill areas and api~roximately ~30q,Dg0 per mile in
mountainous areas. This sug;ests a tremendous cast is involved
in foothill and particularly, mountainous area roadway construc-
tion; as much as five times moxe than valley floor roadway
construction costs. iIigher foothill anci maunta~.n road construction
costs result largely from creased surveyir4g anci cut and fill
costs. Oroville-Quincy Highway, Forbestown Road, and Cohasset Raad
are examples of higher cost-per-mile xoads in Butte County's rand
S}`stem.
The cast of asphaltinn for nei~ raads averages close to one dollar
per sc~uaxe foot, however, these actual costs are extxemely vari-
able due to variable terrain anci otixer engineering factors.
Adeciuate road maintenance is imk~ortant in keening the value of
Butte County's roadi•~ay investment over. file long-term. I4owever,
in FY 1J82/$3, an average of ai~raximatel;l ~1ti00 pex mile was
cafe raac~,~ay costs are rough estimates obtair:c:d from
various ciiiCllS_i~.o;ls Ysit1~ t~ze Butte County i'uE~lic l;ori:s
Department and are furnished for general planning purposes,
only.
~.2 6 -
btrcigeteci for roaclwrzy maintenance on Cozrnt}T roa~.,~. Al~~~r~~xi.rrately
dozable tl~ris amount, or nearly $3l)00 ;Zer average r:4ile is needed
to keep l~a.ce i~~ztlz annual road naintenance needs. Inflation of
road ma~.ntenar.ce costs artci recluceci roadway bzzcl€,ets have led to
increasi~~g road maintenance de £icits sincQ about 1975, far lsutte
County.
~ newly constructed paved road sazoulci lfe seal coated na later
than 10 ~0 1S years after its constructiozr, and sooner, if
jaassibl°. meal coats, ;~~~ic;: cost a1~~~roxiin;.rtel}' x$000 ~~Er averal;e
r:zile, are no;,~ t}~f~icall}r ai71.~lieu onl}' about every 20 years, clue to
financinti. coz.straiirts. Trre abov:~ shortfall ilr seal coat rzainten-
ance cycles 1~arallels the road maintenance deficit 3ust su~;fiested.
:Lssumiiig that the FY 1082/v3 levwl of road revenue remains
constant z•~ith futz~re inflation rates ;~rrile road maintenance needs
remain the sane, the accumulated road maintenance deficit for
Btztte County zaoz.zld be approximately X19.5 t7i11ion din 1942 dollars)
in ten years. (1) The imialicatiori of the- present anti, future road
maintenance deficit is t~rat tare County's road maintenance Larogram
is going to lie increasingly forced to set priorities regarding
which roads are to be adequately maintained and ;,~liicii roads. are
goinfi to lie alloy.*ed to deteriarat~ arid, on oocasion,~ iae converted
to l;rave 1.
Other road maintenance costs incurred by th.e Cozzrrty include
for road striZ}ing and sigr,irrf;, raadzaay reflective markers, road
vandalism, snow plowing, traffic signals, road draina~*e, and
torts. Yearly road striping raintenance costs about X50,000. The
County maintains about 10,000 roadway signs, which have an average
value of about $100. Irr 19$1, abazrt $20,000 in vandalism occurred
to road signs. Reflective pavement markers involve an approximate
X200,000 long-term investrzent belo~tiT the snowline while in
FY 1982/83, $143,000 tray spent for snowploiaing on County roads.
"rew traffic signals cost about $50,000 each. Road drainage
problems in certain urban areas such as Palermo, T;rermalto,
tare Avenues in Chico, and Chaprzantozan add to the County's main-
tenance casts.
4,3 Future Road and fiighwa~}• Finaircin ,
:dew state and federal taxes .an gasoline are expected to increase
Butte Count}T's road revenues, lro~~,ever, not nearly to tlxe extent
for which County residents pa}r gasoline taxes. Tl~e County is
expected to continue as a donor county with retard to balancing
gasoline taxes and revenue. This Gtiiil be particularly true in
the Hoot return of federal nasoline taxes hack to Butte County,
as the hulk of this tax ~1~ill be allocated to ot,rer areas, parti-
cularly Large rzetroiaolitan areas where tl~e national need is ~aer-
ceived to be greatest. 1
~e amount o .~ m~ ion slcould be used ~}enera] ly, and
only as a nethoci to illustrate tyre significance of Butte
Count}r's potential for an accumulated road maintenance budget
deficit.
-27-
~3asecl on the assume tian that }resent taxable gasoline sales in
Butte Catmt}r artouztt to near bD r.tillioaz gallar~s~ I)~r year, the nettir
t.ra cent state gasalir.e tax will increase Butte Count}= anti its'
five cities' raad revenue try a count;•wicle total af. $6DD,DDD ner
}rear, per the formula in SI; 215 of 1981. The rer~ainin~± ~GDD,DDD
collected by SP 215 t;i1l he uses} vy t'te state t,~;tere it perceives
tlae Lreatest xteed.
I}otrever, prospects i'or a faix return of ne:~ fivc cent federal
gasoline tax revenuGS to Butte Count}• seems ,poor. ~3asec} on
current rates of gasoline ca:tsur~i~tio~t, all of PuttP Cotutt}- ;;~ottlci
}?ay a'oout $3. U million izl nets federal ~asalizte taxes yearly.
Iiowever, t'.te 1~~82 federal ~;as tax legislation clici :iot authorize
increased funcli3ig levels for F~~J or F11u c?esi~;;tated roads, thus no
increase in federal fundi~tg for t~tese tt~ro important raad' cate~*ories
in Butte County. (l) Alost of tite nett rederal 1;as tax road alloca-
tion :las been earmarked fox interstate and state primary hibllways
(rAP}, which. will benefit only the state highways in Butte County,
Tt would alapear tltat the new federal bas tax twill increase the rate
at trhiclt T~utte County is a dvnox bas tax county, as Herr federal
gas taxes collected in Butte County are spent elsetrhere. The
likeliltood of equalizing or reducing Butte County's donor status
appears poor, as it trauld take adci.itional federal lel;islation to
remedy this problem.
From the above discussion it is concluded that the prospects for
continued long-term and increasing raad maintenance deficits appears
likely far Butte County unless Herr revenue sources are d.evelaPed
by the County over the short and long run. Several road revenue
generating techniques are currently available, including a local
Butte County };asoline tax, fees on new developments to pay for in-
creased road maintenance and construction t}~at they trill generate,
and assessment districts to pay for new road constrt.zction related to
newly developing areas.
Butte Count}r is authorized by SB 215 of 1981 to c'iarge a ~+er gallon
tax on gasoline sold within the County in order to increase road
maintenance revenue. Butte County ancl_ its five cities trould have
to agree an how to apportion (usually try population} sitclt a local
gas tax and tiro-thirds countywide voter approval would be needed.
Tf Butte Gaurtty were to seta two cent per gallon tax on gasoline,
the County and its cities could annually divide approximately
X1.2 million for local raad purposes. To date, no California
county has adopted a local gasoline tax, and voters have over-
trhelmingly rejected it when placed on the ballot.
e e era igzway mprovement ~Ict of 1982 retained current
levels of FAIN and FAS funding.
_Zg_
Fees on nets developments to ltay for increased road maintenance
and construction that they will Renerate and assessment districts
to ;gay for new road construction related to ne~:ly developing areas
are two revenue ,~,eneratinR mechanisms that appear most equitable
and easy to adopt. I3otI~ tI~e of.f-site development fee and road
assessment district concept encompass a pay-as-you-go strategy for
new clevelonrtent and, if apl~lieci z~riiformly, could allow existing
County road revenues to be focllSeu exclusively on maintenance of
existinU roadtirays. Tlxe combined imk~lementation of these ttro
financing; mechanisms could Hel}a to reduce the County's road main-
tenance deficit in t'.~e future. Utlier nearby counties which utilize
road development fees include; ~ievada Cau~~ty, which has implemented
a countyt~~ide program that charges fees actor-ding; to the road needs
found irr eight ljlanrting sectors in the county, and; iIJ. ]?orado County,
wiaich itas implemented a pro};ram that assesses and cltarbes road devel-
opment fees for develo},ament projects which trill have large off-site
traffic impacts.
Two other potential revenue sources for road maintenance could
possibly be im}demented over the lop;-term, one at the local level
anti another at the state level. Locally, establishment of roadway
drainage assessment districts in }areviously mentioned "
urban problem areas could help extend road maintenance monies ~;Iiile
providing a solution to these local urban drainage l~rolilems.
Also, truck treiglit-distance fee schedules should be reformed to pay
a fair cast of roadway and Iti~;hwa}r damage. (1} lIeavy duty trtscks
axe cause for most of the road damage and, in fact, if fees were
proportioned to use-related road wear and vehicle type, truck fees
-aould }~a}• nearly all of the read maintenance cost. (2) Tlxe opposing
resen ixg tray user taxes, including the truck-related taxes
added in tl~e federal liiglttray Improvement Act of 1982 (new federal
gas tax), favor heavy trucks. Truck user charges cio not
recover the CDStS heavy trucl~ traffic imposes on the hig'.tway
system. Numerous highway cost allocation studies have confirmed
that Iteavy trucks underpay. Even with the near federal gas tax,
heavy trucks will still lie pay ing about 70 percent of their
full Iai~;Ittray cost responsibilit}T. ~;lso, the heavier trucks
allowed by the ].382 federal gas tax Ysill will, on the average,
increase }pavement damage by 1.5 percent.
(2) Pavement deterioration is the r.;ost imsortant cast heavy trucks
impose on the hight;~ays. Tr~icltis over 50,00(} pounds cause
rouUlrly 85 percent of the use-related damage to t:ie nation's
Highways. Pavement stress increases sl~ar,~l}• t~rith increased axle
loads: a five-axle, 80,OU0 l~ot~nci truck causes about 50!} percent
mare stress than the s<3~;c trot'-: loaded to 50,000 pounds, One
$0,000 notiric~ trtlcl; does the same damagE~ as alaout 5,G00 automo-
biles.
-29-
argument suggests that such truck ~re~.ght fees ~,rould be passed on
to the consumer who would end up paying for truck caused road
damage, anyway, Any change in truck weight fee schedules would
have to occur at the state-and federal 1eve1.
The possibility of utilizing community facilities districts for
generating road construction revenues for newly developed areas
is not yet clear, Legislation enabling community facilities
distracts, w}~ich was signedt~r the Governor in 182, does not
clearly specify road construction as a fundable service, Also,
large questions remain as to how much money the County can afford
to spend vn 41advanced" financing of community facilities districts
and what affect such financing would have on the County's future
bond and credit ratings A
4. ~ Im licatlans of Feature load end Hi hw~ pinancin: Shr~x~tfalls
While public transit systems in Butte County appear to have adequate
funding through the planning period, road and highway financin g
for maintenance and construction will be facing continued revenue
shoxtfalls, These anticipated shortfalls i.mp~.y the need to develop
road maintenance and construction strategies whic~~ help to extend
road designated revenues while maintaining basic goad. serv~.ce levels,
Some strategies that should be considered during the planning period
include the follow~.ng o
If reduced levels of road maintenance continue, there will be
Increasing need to formally allocate reduced road maintenance
cycles throughout the County, particularly in rural areas.
Same rural roads will have to be converted to gravel or dirt,
aver tame, if the goad maintenance deficit continues to
.increase, over time,
Other road maintenance and construction cast reductions will
'require increased engineexang economy, Such techniques could
include keeping rural roads informal and urban street widths
as narrow as practically passible,
The issue of °°implied subsidies°° with regard tv road main-
tenance and construction will become increasingly important,
over tame, The issue of. haw to equitably allocate road revenue
resources between .more expensive foothill and mountain roads
and valley floor roads, snowplowing programs, and between
large development projects , part~,cularly for large rural
subdlvision5, and their off-site traffic impacts will require
increasing attention as road maintenance demands increase,
over times
-30-
A system of off-site development fees and assessment district
financing to pay for the traffic impacts caused by new
development in the county will need to be increasingly con-
sidered, particularly if road maintenance programs cantinas
to fall behind their needs.
In certain urban situations, we11 planned public transporta-
tion may help to marginally reduce street congestion, thus
creating a slight increase in street capacity. This oppor-
tunity will have to be examined case-by-case far each transit
system, as the possibilities arise. Also, subdivision
design criteria which increases opportunities far transit
patronage should be incorporated into urban area transit
planning programs.
~Yith the reduced ability to adequately maintain roads that
are currently part of the County's road system, addition of
any new roads to the system will only further tax the County's
road maintenance abilities.
_~l-
SECTION 5.0
ROAD CLASSIFICATIONS AND STANDARDS
The functional c~.assification of roads and the application of
road design standards are key tools to 1) ensuring adequate access
and road design far present and future development and 2) setting
effective priorities for use of road monies.
Since finances prevent every highway in a functional classification
from being developed to optimum design standards, it is necessary
to identify the relative importance of each highway segment from a
system perspective in order to establish a-plan that will maxi-
mize the effectiveness of future improvements.
5.1 Functional Highway Classification
Urban and xuxal streets and highways in butte County are grouped
functionally according to the character of service they are intended
to provide. The classification of streets and highways helps to
l) determine the importance of a particular highway segment in rela-
tion to the overall netwoxk and 2) maintain a balance between the
issues of access to land and traffic mobility for various trans-.
portation facilities when developing progxams for highway improvements.
A functional highway classification is also valuable in helping to
determine priorities for road and highway maintenance policy.
It is necessary to distinguish the functional classification
between urban and rural areas, since the services they provide can
differ greatly. Urb an and rural functional classification charac-
teristics are described by the two tables on the following pages.
Cross-section illustrations of functionally classified roads as they
relate to Butte County's road improvement standards are shown in
Figures 4A and 4B.
Level of Development Priorities - The need to concentrate on essential
rat er t an es~.ra a rmp rovements has lead some public agencies to
devise a method of allocating highway improvements and maintenance
according to the importance of the highway, The goal has been to ,
define road and highway programs so that the greatest benefits are
obtained with a minimum of limited financial resources.
The basic premise of a "level of development" highway maintenance
program is that the most important highways should be designed and
maintained to the. highest passible level to provide the highest
level of traffic service,"operational safety and efficiency. The
least important highways should receive only the improvements necessary
to maintain their structural integrity and operational safety. An
example of a levels of development program is summarized in Appendix B.
-32-
Table 4'
Functional System Characteristics - Urban Areas
'Urban Frinci 'ah Arterial
The principal arterial system should carry the major portion of
trips entering and leaving the urban area, as well as the majority
of through movements desiring to bypass the central city. In
addition, significant.intro-area travel, such as between central
business districts and outlying residential areas, between major
inner city communities yr between major suburban centers should
be served by this class of facilities.
Urban Minor Art'e'riah 'Street
The minor arterial street system should interconnect with and
augment the urban principal arterial system and provide service to
traps of moderate Length at a somewhat Lower level of travel
mobility than major arterials.
Urban Collector Street
The collector street system differs from the arterial systems in
that facilities on the collector system may penetrate neighborhoods,
distributing trips from the arterials through the area to the
ultimate destination which may be on a Local or collector street.
Urban Local Street
Laval streets are limited to serving lots fronting such streets and
should have a cuxvilinear and/or discontin uous alignment, such as
loops and cul-de-sacs, so as to discourage through traffic, but
carry traffic conveniently and as directly as possible tv collector
Streets,
Commercial and Industxial Streets
These streets are designed to serve employment; business, and
txucking traffic in urban commercial and industrial areas.
- 33-
Table 5
Functional System Characteristics - Rural Areas
Rural Principal Arterial
The rural principal arterial system will serve corridor movements
having trip length and travel density characteristics indicative
of substantial statewide or interstate travel. They generally
serve urban areas of 50,000 and over population and a large major-
ity of those with population of 25,000 and over.
Rural i~iinor Arterial
The rural minor arterial road system Links cities and larger towns,
and will he spaced at such intervals, consistent with population
density, sa that all developed'areas~of the County are within a
reasonable distance of an arterial highway. h~inor arterials provide
service to corridors with trip lengths and travel density greater
than those predominantly served by rural collector or local
systems. Alinor arterials constitute routes whose design should
be expected to provide for relatively high overall travel speeds,
with minimum interference to through movement.
Rural Collector Road
The rural collector routes generally serve travel which is pxi-
mariiy intracounty rather than of regional ar statewide importance
and constitutes those routes on which predominant travel distances
are shorter than on arterial routes.
~~~a'ar Collector Road -(l) Provide service to any county seat not
on an arter~.a route, to the larger towns not directly served by
the higher systems, and to other traffic generators of equivalent
intracounty importance, such as consolidated schools, shipping
points, county parks, important mining and agricultural areas,
etc.; (2) link these places with nearby larger towns or cities,
or with routes of higher classification; and (~) serve the more
important intracounty travel corridors.
I~~inor Collector Road - {1) Be spaced at intervals, consistent with
popu anon ensity, to collect traffic from local roads and bring
all developed areas within a reasonable distance of a collector
road; (2) provide service to the remaining smaller communities;
and {3) link the locally important traffic generators with their
rural hinterland.
Rural Local Road - Rural local roads serve primarily to provide
access to a ~acent land and provide service to travel over
relatively short distances ~.as compared to collectors or other
}nigher systems.
-54-
STREET` S1°ANDAR®5
FIGURE 4A
ARTERIALS TYPICAL SECTION
URBAN ARTERIALS
IID~ALIZEU CAPACITY~IF) ' ._1
38,400 AADT
.38,.400 -AADT
25, 600 AADT
RURAL ARTERIAL
(ALSO 4 LANES WITH 48' OF PAVING)
!4,000 AADT
2 LANES WITH GRAVEL SHOULDER
60-84
'liciDEAL CONDITIONS- LEVEL OE SERVICE °C"
City standards may vary from what is shown.
9' 90 9`
8 LANES WITH PARKING OR BIKE LANES
IO$'
fi LANES WITH CENTER DIVIDE, NO PARKING
108 `
4 LANES WITH PARKING OR BIKE LANE5
84`
STREET STANDARDS
FIGURE 4B
COLLECTORS
URBAN COLLECTORS
(IDEALIZED CAPACITY'}
~ 2, 800 AADT
RURAL .COLLECTORS
LESS THAN 14,000 AADT
LOCAL
LOCAL URBAN STREETS
(PAVING WIDTH RANGES FROM 26`-36~
R/W WIDTH RANGES FROM 46`- 60' )
LESS- THAN- 12,000 AADT
LOCAL RURAL ROADS
(PAVING WIDTH RANGES FROM 20'-26`
R/W WIDTH RANGES FROM 50'-60`}
IV 4V IU
2 LANES WITH PARKING AND/OR BIKE LANES
60 - S+~
2 LANES
60 `
2 LANES WITH PARKING AND/OR 81K>r LANES
56`
'`~` -
~~
fay' 2' 20' 2'
2 LANES
~a'
~kIDEAL CONDITIONS - LEVEL AF SERVICE "C"
TYPICAL SECTION
5.2 Road Standards
Existin Standards - Butte County's road improvement standards
e one roa way requirements for land divisions, including for
subdivisions and parcel splits. A separate set of road standards
have been developed for the County's urban, rural valley, and
foothill and mountainous areas.
The Butte County improvement Standards Elydinance indicates by map,
the boundaries where each urban area and the foothill-mountainous
standard is applied. For urban area subdivisions, Butte County
standards are to conform to the incorporated city of each area.
Butte County will maintain only roads which meet County standards,
unless otherwise stated in a maintenance or development agreement.
Private subdivision roads which are developed to less than County
standards are to be maintained as to the conditions of a maintenance
agreement between the County and subdivider. The County no longer
assumes the maintenance of new roads which consist of gravel or dirt
road surfaces. Private roads which are developed without a land
division are not subject to Butte County's improvement standards.
Road permits are required when a new private road in some way affects
the status or characteristics of an existing County maintained road.
5.21 AcCeSS and Road Standard Issues
There is a need to sort out, sensibly and publicly, which roads should
be part of the County road system, and which should be the respon-
sibility of private owners. But this can't be done until the County
can afford to adequately maintain the roads already existing in
its system. Beyond the main County road network, County residents
ultimately must be responsible far building their own access roads,
and for maintaining them. New access roads will probably have to
be paid far by landowners and those building new homes. Many resi-
dents have moved in during the last number of years, and have paid
for their access and will not want to pay again far someone else's.
i-~istorically, many old acr_ess roads constructed prior to present
subdivision reap requirements were narrow, pooly graded and substandard,
and some of these roads have been taken into the County's road
system. The problem now facing the County and local residents,
alike, is that the County does not have enough money to either
properly maintain or to improve these substandard access roads.
New roads, both private access roads, as well as County roads,
need to be built and maintained to last. While a road is new,
routine maintenance costs will be moderate and problems few. The
problems may come later, if those who are managing the xoad main-
tenance don't set aside enough money to cover the full (inflated)
- 35-
cost of major maintenance, such as resurfacing, which will come
due. County or private roads which are built to lower standards
are trading present lowex C05t5 and easier development for a future
road in poorer shape with higher maintenance costs later.
In some cases, County road standards have been flexible for roads
already in place, working instead toward improving xoads to meet
traffic needs rather than to meet a standard. There should be a
continuous effort to plan a road system that creates both adequate
access and road standards fox present and future development.
Access
To ensure adequate access, the County should require that useable
road easements of adequate width be located as to most beneficially
serve the circulation needs of all parcels. Also, any right-of-way
needed for new roads or expansion of existing xoads should be
planned and ensured prior to the development that causes the need
far additional circulation. Land uses that would preclude the
timely development of such right-of-way should be prohibited.
The control of access on
important to maintaining
and traffic speeds which
mid-block access points,
lead to deterioration of
and driving convenience,
whenever possible.
Road Standards
the County's main artexial highways is
these facilit~.es fr~r the high volumes
they axe intended. Additional driveways,
intersections, and on-street parking all
a highway's potential traffic capacity
and should be limited along majox roads
To ensure adequate road standards, the County should require that
adopted County standards be applied to all subdivision and parcel.
land divisions, including for private roads. Roads of adequate
design and standard will help to ensure that present and future
access needs are met, help to reduce overall road maintenance
cycles and costs, and help to reduce environmental damage from
poorly graded and surfaced roads. A lower road standard may be
reasonable for roads which will always serve as individual lot
access, only, and will never serve more .than a few lots. Also,
as a matter of equity, new. land divisions should be held responsible
for their share of off-site road improvements needed to handle
their contribution of increased traffic on existing access roads.
Certain issues involving Butte County's new road standards are
related to overall general planning concerns. For example, the
County's urban area road improvement standards boundary should
ultimately conform closely to each urban area sphere of influence,
FAU boundary, and County and respective city urban land use
- 36_
perimeters and circulation elements, All land division road
standards an urban areas should correspond to those of each city.
This practice wall help to ensure coordination between city and
county urban land divisions which could eventually be under the
city's jurisdiction.
The County has designated a separate set of Land davisaon road
standards in an area called mountain-recreational. These standards
generally allow reduced roadway widths due to increased casts
associated with. foothill and mountain road development. However,
the present area designated mountain recreational in the County's
imp ravement standards does not include all areas topographically
classified as foothill land. The mountain recreational design-
ation should be updated to include all foothill and mountain areas
that axe not of urban designation.
Sa, fety
In Butte County's foothill areas, adequate emergency fire access
as a very important aspect of circulation plannin g. Adequate
access for emergency escape and attack of wild land fires requires
adequate evacuation routes, read width, and bridge strength. The
Butte County Fixe Department and California Department of E'orestry
are responsive for fire suppression and management programs in the
County's fire hazard areas.
Another road and highway safety issue involves the transportation
of hazardous and toxic materials in and through the County.
Accidental spills of certain toxic materials present local resi-
dents with both immediate hazards and the possibility of longer
termed health risks. The County should encourage state and
federal government to continue the development and implementation
of comprehensive programs which regulate the transportation of
toxic and hazardous materials on the County's highways and railroads.
Butte County's present improvement standards provide technical
and engineering standards for subdivision and parcel land divisions,
however, they do pat set guidelines for developing a land capa-
bility report or grading and drainage requirements far a land
division proposal. It is suggested, after review of other compari-
son counties, that Butte County prepare a land division design
manual whit}1 provides detailed guidance regarding improvement
standards, including for roads. (l) An adequately detailed anti
clearly worded land division design manual would assist hot}~ project
applicants, develaPers, the Public, and t}~e County in facilitating
the development review process.
5,Z2 Erosion and Roads.
!ls mentioned, the Butte County Conservation L•lement lists roads as
the leading cause of soil erosion in the County and suggests
_gq-
implementation of measures to control road-related soil erosion,
particularly in foothill and mountainous areas. This soil
erosion problem exists from both public and private road develop-
ment. The County's adoption of an erosion control program, includ-
ing the requirement for erasion control plans to be included as
part of its road improvement standards, would begin to mitigate
the road-cause erosion problems discussed in the Conservation
Element.
5.23 Development Agreements
~....
Development agreements are a planning tail that a11vw for con-
tractual agreement between a project applicant and a public
agency, such as Butte Cvunty.(2) Generally, development agree-
ments are set in accordance with existing policies, rules, and
regulations, and subject to conditions, of approval. If used
wisely, they will strengthen the public pla Wing process, encourage
private participation in comprehensive planning and reduce the
economic costs of development.
Development agreements are mrmally used to ensure the nature,
quality, and timing of project improvements, both on and off the
project site, including for road standards, future road mainten-
ance, and for site related circulation planning. To date, the
County's use of development agreements for road and circulation
considerations has been limited. The wider use of the development
agreement concept could present case-by-case opportunities for
both 1) the County, in terms of planning, maintenance, and standards
guarantees, and 2) a project developer, in terms of better planning
coordination as well as some potential for reduction of costs.
ee tie ~ ora o ounty Land Division Design Manual.
{2) Tlie authority and purpose o£ development agreements are found
in Government Code Sections 65364 through 65869.5.
-38-
SECTION 6.0
TRANSPORTATION FORECAST
This section presents a forecast of Butte County's txansportation
xequirements to the year 2000 by considering the interrelationship
between existing land-use and transportation plans and projected
population growth. A reasonably accurate projection of future
County transportation needs is the singlemost impart ant analysis in
this Element. If future traffic is projected too low, the public
convenience and safety could be jeopardized, Traffic projections
which overstate future capacity requirements can lead to needless
and potentially costly averdesigning of streets and highways at the
expense of taxpayers, developers, new home buyers, not to mention
the financing capability of local government. Also, overstated
traffic forecasts which lead to excessive highway capacities can
also become a factor in creating undesirable development pressures.
which canfiict with other elements of .the County General Plan.
6.1 Trans ortation Plans of Affected Jurisdictions
The following subsection summarizes-pertinent transportation rela-
ted policies or programs of governmental agencies affected by the
Transportation Element,
6,11 Butte County General Plan
The Butte County General Plan consists of nine separately written
elements which must b~ internally consistent, throughout. Seven
of the County's General Plan elements contain statements or refer-
ences that refer directly to concerns of the Transportation Element
and these are summarized in the fallowing discussion.
As mentioned in Section 1.0, a circulation element must. be corre-
lated to land use patterns suggested by the Land Use Element.
The County's Land Use Element discusses this interrelationship
in the fallowing statements:
"The circulation element controls the accessibility to land
which affects development patterns, which, in turn, affect
traffic volumes and movement patterns."(1)
The Land Ilse Element also states:
"Taken together, streets, roads, airports, railroads, sidewalks,
and other transportation facilities constitute a major land
use. The location and growth of communities and the local
patterns of development are largely dependent an transporta-
tion systems."
u e ounty an se ement, pg. 4
-39-
"The interrelationship between transportation and land use is
exemplified in the California Government Code which requires
the correlation of the Circulation Element with the Land Use
Element of the General Plan."(l)
Land Use Element policies call for tie provision of transportation
facilities of all types that will accommodate existing and proposed
land use patterns and densities and provide far the "rapid, efficient,
comfortable, and safe passage of people and commodities." Land use
policy calls fox the balancing of residential densities with traffic-
carrying capacities of existing and proposed circulation plans.(2)
It is also policy to encourage development in and around existing
communities with public facilities.(3}
Housing Element - The dousing Element acknowledges the problem of a
shortage of funding sources to finance needed street and traffic
circulation expansions and impravements.(4) The Element contains as
policy that "new housing construction shall he encauraged in locations
with reasonable proximity to centers of employment and shopping facil-
ities, and which respect the conservation of energy."(5) Residential
density increases are encauraged when there are practical opportun-
ities and development cost savings involved.
Conservation Element The Conservation Element lists roads as the
leading cause of soil erosion in the County. "It would appear,
therefore, that roads are a dominant contributing factor to the sail
erasion problems, and the full impact of roads on the .soil and
vegetation in Butte County should be defined and control measures
established far road-related soil and vegetative problems so that
these problems will be minimized, if not eliminated.(b}
Open Space Element - This element includes the fallowing recommenda-
tions that relate to circulation:
The County s~iould set large minimum parcel sizes for open space
sand outside the urban areas indicated on the Land Use Plan t~~ap. (7}
Studies should be conducted to determine the urban development
cap abilities of the foothill and mountain areas.(8}
utte aunty an se ement, p. 37
(2) Ibid, p. 34
(3) Ibid, p. 30
(4) Butte County tlausing Element, p. I-20
(5} Ibid, p. III-4
(b) Butte County Conservation Element, p. 8.15.
(7} Butte County Open Space Element, p. 14.2
(8} Ibid, p. 14.2
-40-
The County should not allow in timber-mountain areas, the construc-
tion of any roads or buildings which are not necessary to open
space uses. [1)
5atety dement - "i'his element is related to circulation planning
because of policies related to fire and emergency access and
evacuation routes and standards far minimum road widths.
Noise Element - The Noise Element provides noise exposure informa-
tion intended to guide development of the i,and Use and Transportation
Elements and noise ordinances. The Element is considered a "source"
document to be used when formulating policies for other elements of
the General Plan.(2) Transportation related noise sources considered
by the element include noise from highways, railxoads and airports.
Transportation related policies include.(3)
Where possible, control the sources of transportation noise to
maintain acceptable levels.
Special consideration should be given to residential development
and other noise-sensitive activities near railxoads and highways.
Discourage noise sensitive activities near airports.
In addition, the Noise Element calls for adoption of a County noise
ordinance.
Scenic Highways Element - This Element outlines the pro gram and
procedure for scenic highway corridor evaluation and selection,
as well as for scenic highway corridor development controls and
protection. Butte County designated scenic highways include.
State Route 32 east of Forest Ranch, and State Route ~0 east of
Pentz Road. Although these sections of highway are eligible for
State scenic highway design anon, the County has not proceeded
towards gaining such State designation..
In addition to the above elements of the County General Plan, the
Chico Area i.and Use Plan (and Environmental Impact Report} also
contains references regarding the County's circulation plans. and
policies for the Chico urban area. It is concluded that significant
u e oun y pen pace ement, p. 14.G
(2) Butte County Noise Element, p. 2
(3) Ibid, p. 25
-41-
traffic impacts will occur from forecasted Chico urban area growth
and that a multiple agency and multiple made Cl~ico area transportation
program be combined with a re-examination at land use policy.(l)
Furthermore, the Chico area circulation system is "not balanced"
or adequate for the full development of land anticipated in the Plan.(2}
Specific mitigation measures are incorporated into the Chico area's
plan, including;(3)
Continued sup~~ort of inter and intro-city public transit.
Revision of the Butte County Transportation Element.
Cooperative County of Butte and City of Chico development of a
circulation capital improvements program for the Chico area,
including for streets and highways financing and revenue mechanisms.
The utilization of 1laldin g zones ar urban reserves to allow timely
development of Chico's future circulation facilities.
An overall assessment of th.e Oroville area circulation systems is
described in the draft Supplemental Environmental Impact Report [dE1R)
for the Oroville Land Use Plan of the Butte Gounty General Plan. The
supplemental dEIR concluded that street and highway capacity improve-
ments in the proposed Oroville Area Land Use Plan may not be fully
mitigated and additional mitigation measures were needed, including:
The County and the City of Oroville should cooperatively undertake
a land use based traffic study to examine and plan for future
circulation needs. The study would identify future thoroughfares
and develop a system for financing improvements.
Focus urban growth toward the south Oroville area while applying
large parcel zoning in the vicinity of Wyman Ravine and south, until
circulation and other needs are addressed.
Plan for east-west arterial/collectors in the area between Oroville
and Palermo which are designed to provide an alternative to Olive
Highway (Rt. 162). Limit the number of access points and driveways
connecting to major east-west routes in the southern portion of
the planning area.
6 X12 Cities of Butte County
City~of Chico - Chico 's General Plan was adopted in 19'16 with trans-
portation discussion and policies that focused on coordinating a
multi-modal transportation system, the scenic enhancement of the
highway system, and street and highway noise and safety concerns.
1 EIR~ox ~~ Coco Area Land Use P1 an - An Amendment to the
Butte County General Plan, April, 1982, p. 142.
(2) Ibid, p. 143
(3) Ibid, p , 122
-42-
EXIST ..~G AND FUTURE TRAFFIC ._JLUMES
CITY OF CHICO
~ t ' ~ `\
(10.1) ___~ \ ~ ~`
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ra o 2~ ~~ 1 co 1~ N \~ ~~~
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~~ tFy9o~ 4y5~~ \ h I ~.1 ~ ~ i ,~
`~i ~g1 ~ N a!l t~~ `rl car Iso
L~a~ (18.6) ~ (22.0} VI(f6.611 {4.7) ! ~.i 1`~
9.1~ l-9.31 11.3 i1.5 ! 8.5 IEAST AVE 1 ~~
~ lZ' r {5.0) 2J
11•dJ r'u~~ J =',~' oi~g ~ cuai ra
`ZO~ sJ v ~ ~ r~~l 1
/ $L~. p~E ~ c'~l~~;l~~• `r°r;~y ~Jsp `u~.b1 ~0 1 16.7 ~``t3.Ol
y~r3 ~ `3 ~ `J t~~0 rra ~ l ZO 110.11 j I
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FIGURE 5
r 10.8- 1981 TRAFFIC VOLUME
0
o~ M (26.5f-2000 FORCASTED TRAFFIC VOLUME
.~? {VOLUMEE 1N TFIOUSANDS OF AADT)
50URCES~ Cii1C0 URBAN AREA TRANSPORTATION STUDY 1962 , COUNTY AND CITY TRAFFIC DATA 198E .
The Chico Urban Area Transportation Study.{CATS-) was completed in
late 2982. The purpose of the CATS was to predict future Chico
area traffic levels based on anticipated land use patterns, and
identify transportation improvements that would likely be necessary
to accommodate Chico's growth. The CATS forecast for future travel
demand was modeled for anticipated growth to the year 2000 and far
ultimate build-out. The traffic model forecast for the year 2000
used the city's planning area as the study boundary and estimated
a population of 102,000. This Chico area population forecast is
slightly greater than the County forecast for the same geographic
area and date. Figure 5 shows existing and yeax 2000 (CATS)
forecasted traffic volumes on Chico urban area streets.
CATS also proposed a financing plan for Chico street and highway
improvements forecasted to year 2000 and far ultimate build-out.
The premise of the plan was "that new development should bear the
cost of the improvements xequired to accommodate the additional traffic
generated~by such development."(1) Twa basic financing mechanisms
were proposed. "Fixst, assessment districts would be established to
finance improvements where the local properties would be the primary
beneficiaries of such improvements. This would include situations
in which almost all of the traffic using a roadway would be going
or coming from adjacent properties." It was calculated that the
assessment district financing mechanism could be used to fund almost
half of the new street and fnghway improvements which would occur in
Chico's designated growth areas.
The second funding mechanism proposed by the CATS would provide
revenue through developer fees an all new development in the Chico
urban area so to finance area wide street and highway improvements
requixed because of the new development. In both funding proposals,
either the assessment or fee mechanism, the rate was proposed to be
based an estimated trip generation for each particular new development.
No funding mechanism was proposed for Chico area street maintenance
or safety improvements on existing facilities. It should be noted
that the above funding mechanism for Chico area streets and highways
would require County cooperation, in order to be successful and
equitable.
In addition to the transportation forecast and financing plan
contained in CATS, there figs >~.eeri concern for liow_ future ~Chi`.co
transportation facilities might adversely affect Bidwell Park.
Extreme care should be taken in refining the street and Highway
system suggested in CATS so as to not adversely affect the amenities
of Bidwell. bark by future transportation system developments.
Cit of Droville - Droville recently revised its general plan Land
se, ~.rcu a ion and Noise Elements in early 1983. The Droville
circulation Element provides a description of present street condi-
tions and then develops a traffic forecast to the year 2005 for the
city's planning area (see Figure ~j. -The boundary of the city's
planning area is approximately the same as the County's.
~.ca ran rea ransportatian Study, prepared by JFIK and
Associates, San Francesco, ,~ovemher, 1982, p. I:-3
-4'~_
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EXIS'sl~.~rlG AND FUTURE TRAFFI'C' VOLUMES
TOWN OF PARADISE
FIGURE 7
SOURCE PAitAflISE TRAFFIC STUDY 1982
7.2 - 1981 TRAFF#C VOLUME
(#0.0)-1990 FORCASTED 1"RAFFIC VOLUME
(VOL.UME iN 'CHOUSANDS OF AADT}
Many circulation improvements recommended in the Oraville Circula-
tion Element are located in areas currently antler County jurisdic-
tion. The bulk of these County located improvements are situated in
the west Thermalita and south Oroville areas and involve construction
of new collector streets and arterials.
The Oroville Circulation Element provides implementation language
far an Oraville area traffic study and an airport environs plan.
The area traffic study is recommended to be prepaxed in conjunction
with the County, iii that much of the area's traffic originates in
County jurisdiction. The Circulation Element also suggests the
potential use of assessment district and developer fee street
improvement financing met}~anisms similar to those which are
discussed above regarding the Chico Urban Area Transportation
Study.
An assessment of the City of Oroville Circulation Element reveals
several concerns -that will need to be addressed in future planning
discussions, including:
The methodology utilized ~.n developing the Gity's Circulation
Element projected growth of traffic volumes based on historical
traffic growth at selected counting locations and was not directly
based on land use under buildout conditions. Trend line projections
are not reliable in forecasting future traffic conditions. A
more appropriate traffic forecasting method would utilize planned
land use patterns as its basis for projecting and planning circu-
lation system..
There is an aver-reliance on
the planning area east of th
pattern of collectors in the
State Route 162 in generally
and many work and commercial
area.
State Route 162 as an arterial for
City of Oraville. The radial
eastern planning area converge on
the same area of central Oroville
trip ends are concentrated in this
The. rolling terrain in the urban area's eastern planning area
makes road construction and expansion more expensive and
difficult [e .g. rock removal, cut and fi11 operations cause
increased development casts).
Town of Paradise - The Town of Paradise completed its first general
p an ~.n an it cavern a'planning pexiod to 1992. .The commun-
Zties of Paradise Pines and Atagalia, which are in County jurisdiction,
were not included. The plan found that the Town's present arterial
road system is adequate to handle future traffic flaws, but recommend
the development of better cross-town access to Feather River l~ospi-
tal. (l) The plan also set as policy the preservation of the rural
character of the TotiJn's neighborhood and collector road system and
calls for study of the feasibility of establishing a local fixed
route bus system.{2)
era ise enera an, 2, p. VII - 35, 37
(2) Ibid, p. VII - 37, 41
-44-
A comprehensive tra_~ic circulation study for ,tie Town was completed
in late 1982, as called for in the general plan. (l; This study
included areas only within the Town's municipal limits and s~ho~vs
the need for several collector road extensions to 1990. Figure 7
shows existing and year 1992 forecasted traffic volumes an the
Town's major streets.
The Paradise General Plan recommends that a master plan be developed
for bicycle, pedestrian, and equestrian paths and trails in and
adjacent to Paradise. (2) The Town has completed a bicycle master plan
which stresses use of the abandoned Southern Pacific railway corridor
through western Paradise. (3) State funding far the first phase of
the bicycle plan has been approved.
City of Gridley - The City drafted a revised circulation element
urzn g w zch identified several potential street capacity p ro-
blems within the City in the long term future. The draft also
proposed several roadway extensions throughout the City that would
serve anticipated gxowth. The draft did not establish any timetables
for its proposals,
The RTP utilizes the transportation plans of Butte County and its
cities and assumes that locally adopted circulation elements
adequately describe each respective local street and highway
system, as well as other modes including public transportation.
The RTP states its long-term goal towards transportation development
in Butte County and then describes critical transportation issues
while relating them to objectives and policies far streets and
highways and other local transportation issues which are addressed
in this Transportation Klement. The RTP l~.sts current and future
deficiencies in the County transportation system and provides a
list of five-year transportation projects necessary to achieve
the regional transportation objectives.
Gridley's draft circulation plan also indicates retention of the
existing State Route 99 relocation {east of existing alignment)
from the Sutter County line to' ~-Iamilton Raad.
6.13 Butte County Regional Transportation Plan
As mentioned in Section 1.22, the major empli.asis of the Butte County
RTP involves specific transportation projects that plan to utilize
state or federal monies during the next five years. The RTP utilizes
the transportation plans of Butte County and its cities and assumes
that locally adopted circulation elements adequately describe each
respective local street and highway system, as well as other modes,
including public transportation. _
{3"- Town o Paradise, Traffic Circulation, Safety and Speed Zone
Studies, and Traffic Control Device Inventory, prepared by TJKM.
Transportation Consultants, Walnut Creek, September, 1.982.
(2) Paradise General Plan, p, IV - l5.
(3~ Town of Paradise, Paradise Bikeways Master Plan, Adptd. Nov. 1982
{4) City of Gridley, draft Circulation Element of the General Plan, p.3
_n c_
6.14 Caltrans
The State highway system is the transportation lifeline for Butte
County, Adequate state highways must be insured or the County's
economy and its development will be hindered.
The easiest way to manage growth is to build good roads to those
areas where development is wanted and planned. Caltrans' priorities
emphasize that land use decisions should lead, not follow; and the
State should nat provide opportunities for spreading land develop-
ment by building or improving highways into undeveloped .areas.
Caltrans' priorities for highway work are; in order:
1. Maintenance and rehabilitation.
Z, lmprovements that help safety and/or traffic movement.
3. ~Tew highways that close short gaps or improve main state
wide travel routes.
6.2 Po ulation GrnWth andIand Use Concerns
The Butte County Planning Department .has
projections for sixteen planning areas t
the countywide growth rate is assumed to
near S.0 percent per year to the end of
mean a year 2000 Butte County population
percent increase since the 1980 census.
the following pages shows the forecasted
by planning area for the year 2000.
developed population growth
o the year 2000.(1) Overall,
occur at a sustained rate
the century.(2) This would
of 266,0],0 or a 82,8
Table 6 and Figure 8 on
distribution of population
It sYiould b~e noted that .recent California Department of Finance ~pro-
j'ections jSeptember, I9.83) farecasted Butte Gaunty's year ZQ00 popu-
lation at 225,800. This plan's analysis has utilized the higher
Planning pepartment forecast, with 'the understanding that future
County forecasts will assess the effective difference between the
-two prajections aver the shart term future.
u e aunty - : Population, Employment, .and Use: An
Assessment of Fzsture Conditions. A Report by the Butte County
Planning Department, 1982.
-..4 6. ,
TABLE 6
Population Distribution and Density
by Planning Area - 1980 and 2000
Planning Area Population
$ Fob/Sq ^ tii.
2,3 25.4
Fop ulation o
9,310 3.5
Po /Sq. Mi.
70.6
1. ~1ord 3, 347
2. Forest Ranc~i
Cohasset 2,332
3. Stirling City 572
4. Chico 54,974
5. Upper Ridge 5,168
6. Paradise 22,648
7. Concow 1,021
8, Durham 3,358
9. Central Butte 927
10. Feather Falls-
Brush Creek 663
11. Table Biountain 835
12. Bexry Creek-
Hurleton 1,793
13. Gridley-Biggs 11,850
14. Oxoville 27,565
15. Palermo 3,294
16. ~ioncut-
l.6 10.7 6,650 2.5 30.6
0.4 4.6 600 --- 4.8
38.2 1,577.7 95,760 36.0 2,748.3
3.6 238.0 13,300 5.0 621.4
15.7 986.0 34,580 13.0 1,505.5
0.7 9.S 3,000 1.0 27.8
2.7 27.2 5,320 2.0 37.5
0.6 12.2 6,650 2.5 87.8
0.5 2.9 700 --- 3.1
U.6 10.2 2,360 1.0 27.2
1,3 15.4 6,650 2.5 57.0
8.2 58.5 23,940 9.0 118.1
19.2 455.9 45,220 17.0 747.8
2.3 200.8 6,650 2.5 405.3
Bangor 295_6 Z.1 24. 3 5 , 320 2; 0 43, 7
143,853 100.Q 266,010 100.0
Source: Butte County 1985-2000: Population, Employment, Land Uss: An
Assessment of fiuture Conditions,. A Report by the Butte County
Planning Department, 1982.
-47-
Urban and Urbanizing Areas - Year 2000
Figure 8
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3-Stirling City
4 -Chaco
S-Upper Radge
5-Paradise
7-Cancaw PlG
8-burha~
9-Central Bute
a
l0-Feather Fa11s-Brush ~
11-Table Nfpuntain 2.
1.2-Berry Creek- Hurlet an
l3-Gridley-Boggs
l4-Oroville 3.
l5-Palermo '
15-Honcut-Bangor 4.
5.
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-48-
b.21 Urban Area Growth
Chico and Oroville, the County's two largest urban areas, respec-
tively, are forecasted to contain the County's greatest nominal
growth to 2000. The growth rate in the Paradise area is expected to
slow in the Town of Paradise and increase above the County average
in the Paradise Pines area. Growth rates in the Gridley-Biggs and
Palermo areas are expected to he slightly above the County average
for the period. The combined urban area population for Butte County
is projected to be approximately 22b,450 or 85.1 percent of the
countywide 2000 population, compared to 87.2 percent of the 1980
countywide population.
b.22 Rural Area Growth
Butte County's rural area growth rates are expected to be generally
higher than urban area growth rates to year 2000. The bulk of the
rural area population growth will occur in the County's foothill
areas. The foothill share of the County's fatal population is
expected to increase from 7.8 percent in 1980 to 11.5 percent in
2000, a population increase of 186.7 percent representing approxi-
mately 20,800 people or 7.8 percent of the forecasted countywide
population in year 2000. The largest increases of foothill growth
occur in the Forest Ranch-Cohasset, Central Butte, Berry Creek-
}~urleton, and Honcut-Ban gar planning areas (see Table 6) .
Population growth on the County's agricultural Sacramento Valley
floor is expected to occur mostly within and near urban areas
which are designated for urban development by the land use element.
Rural area growth on agricultural lands will be suburban in
character and confined chiefly to small agricultural parcels that
are designated around the community of Durham and City of Gridley.
6.23 General Planning Implications of Forecasted Grozrth to the
Butte County Circulation 5ys~tem
Since Butte County's principal growth areas are forecasted to be
located in the County's urban and foothill areas, the .focus of
future circulation system expansion, planning policy and specific
programs must attend an these areas. In County areas where little
or no growth is expected and where the current road and highway
system is forecasted to have adequate capacity in the year 2000,
a goal of maintenance planning and programming is in order,
For the County's growing urban areas, comprehensive urban area
circulation planning should occur within each municipal sphere of
influence. This suggests the need for circulation planning and
financing programs that insure coordinated city-county transpor-
tation developments, as appropriate, for each Butte County urban
area.
-49-
In the rural foothill areas, the implications of population
growth to the County°s circulation system is extremely varied
and discussing, the range of implications in detail will require
considerably more information than can be provided by the Transpor-
tation Element, alone. This problem begins with the area's topo-
graphic diversity, remoteness and geographically spread development
patterns. Aiuch of the development in the footf~ills has been by
individuals building on single lots. The pattern is essentially
random, and it follows no plane The Butte County land use design-
ation of Agricultural-Residential (allowing 1-40 acres per dwelling
unit), which is faund throughout the faothill areas, leaves an
extremely wide range of land use densities which can impact long
range future traffic forecasts for an area with a proportionally
equal and uncertain range, This problem is compounded when there
is the presence of general (A-2) zoning in a footj~ill area design-
ated as Agricultural-Residential in the General Plan.
The above-described problems in planning for long range circulation
development in the foothills are again compounded by the degree of
uncertainty where or when growth will actually occur in foothill
planning areas. In many foothill areas, the accuracy of middle
and long range traffic: projections based on possible ranges of land
uses are often largely forfeited, thus leaving in question what
would be an adequate level of local circulation system develapment.
This suggests the need far mare precise foothill land use design-
ations and zoning in the Land llse Element so that a future foothill
circulation development program can be accurately projected, within
reason.
A 1982 inventory of existing rural residential parcels indicated the
extent to which rural land parcelization has occurred in upland
Butte County. (1) The inventory indicated t;~at the County's eight
foothill-mountain planning areas contained enough existing rural
parcels of 40 acres or less in size to accomodate a population
increase of 224 percent over its 1980 population. Specifically,
the inventory faund that existing rural residential parcels in
faothill-mountain areas could potentially accomodate 24,960
people. In 1980, the same area ]iad a rural population of 11,149.
Based on the Planning Department's population forecasts, existing
foothill-mountain parcels could accomodate 78,2 percent of the
year 2000 population forecasted in tie eight upland planning areas.
In faothill areas where reasonably confident planning area traffic
forecasts can be made available, the focus should be towards
development patterns which minimize the burden of expanding the
existing circulation network beyond existing foothill-mountain
communities and foothill transportation corridors.
utte aunty ann~.ng epartment, Inventory of Rural Residential
Parcels in Butte County by Planning Area, Pall, 1982.
..50_
6.3 Raad and Hi hway Forecast
An analysis of future traffic volumes on Butte County's road and
highway network must first inventory past and current traffic
conditions. This information is then analyzed in relation to
traffic volume changes that are projected from population gxowth
and land use changes within and outside the County to the year 2000;
resulting in a traffic volume forecast for State and County roads
and highways. Finally, the yeax 2000 traffic forecast is compared
with present road and highway capacity levels to illustrate where
the State and County circulation systems will need increases in
capacity or new road segments.
6.31 Current Traffic Conditions
Traffic volumes information is collected by the Butte County Public
Works Department, Caltrans, and the cities in Butte County on a
regular basis every two to three years~at selected locations through-
out the County. This traffic data is then reported as annual
average daily traffic, and rep resents the total number of motor
vehicles using the road during a 24 hoax period an a typical
weekday.
Generally, County traffic growth since
increase d. most rapidly in and near the
urban areas; Chico, Croville and Parad
major arterials connecting these three
significantly, although not as rapidly
themselves.
the early 1970's has
County's three largest
ise, Increases in AADT
urban areas also increased
as within the urban areas
Traffic growth on State and County artexial highways that serve the
rural Sacramento Valley floor were charactexized by generally
smaller volumes and much slower gxowth rates than adjacent urban
areas during the 1970's. In the County's rural foothill areas, AADT
increases were Quite rapid during the 1970's, although fatal traffic
volumes remained relatively low. Traffic volumes in the County's
mountainous areas remained light through the 1970'x.
Table 7 on the following page shows AAIIT changes at selected xural
locations on major County roadways. The only existing rural
roadway capacity problem on the County's highway network was solved
by completion of the Skyway expansion project between Chico and
Paradise in 1982, Present urban area traffic counts should be
referred to respective city circulation studies and plans. Table 9,
on page 60, shows changes on State highway routes in Butte Gounty.
Figure 9 shows relativel981 traffic volumes on major Butte Gaunty
rural highways and Figure.~10 indicates their approximate existing.
capacity.
-51-
Table 7
Traffic Volumes - Rural County Roads
1973 and 1981
Average Annual Daily Traffic
County Road and Location ~ 1973 lggl
Hamilton-Nord Rd. north of SR 32 640 1I90
Cohasset Rd. north of Keefer Rd. 540 920
Keefer Rd. east of SR 99 210 680
Sacramento Ave, at Sandy Gulch 1620 960
Chico-River Rd. west of Lone Pine Rd. 1130 1360
Humbug Rd. east of Skyway 1110 1960
Skyway south of ~iumbug Rd. 8190 9150
Humboldt Rd. east of SR 3Z 150 480
Dayton Rd. north of Durham-Dayton Hwy, 1950 2910
Dayton Rd. east of Dayton 1490 2550
Durham-Dayton Hwy, east of Dayton Rd. 980 1200
Midway south of Oro-Chico Hwy. 4530 4630
Midway north of Durham ~ 4070 2510
Durham-Dayton Hwy. at Butte Creek 3020 2320
Midway south of Durham 1820 1330
Skyway north of De Sabla n.d. 880
Skyway north of Coutolenc 2890 9410
Skyway west of Town limits 8010 12520
Pentz-Magalia Rd. South of Town limits 1430 1274
Neal Rd. east of SR 99 820 710
Pentz Rd. east of SR 99 950 2080
Concow Rd. north of SR TO n.d. 610
Ord-Ferry Rd, at Sacramento River 850 1440
Frias Rd. north of Nelson Rd. ~ 410 SIO
Afton Rd. at Glenn Co. Line ll0 l60
Colusa Hwy. at Colusa Co. line 270 550
Richvale Hwy. east of Richvale 890 1010
Afton Rd. west of Biggs 1090 1340
Biggs-Gxidley Hwy. south of Faxris Rd, 2390 22$0
Biggs-Gridley Hwy, north of Gridley 2360 2900
East Gridley Rd. east of Larkin Rd. 3870 4560
Larkin Rd, south of Evans Rd. 1540 1770
Larkin Rd. north of Hamilton Rd. 1240 I560
Eas-t-.Biggs Hwy, east of SR 99 1190 2020
Palermo Rd, west of Lane Tree Rd. 1060 1220
Lincoln Blvd. north of Palermo Rd. 2390 3170
Oro-Quincy Hwy. at Brush Creek., 450 480
Oro-Quincy Hwy. north of Foreman Rd. 1040 1160
Forbestown Rd. west of Lumpkin Rd. 840 1270
Lumpkin Rd, north of Forbestown Rd, 510 640
Bangor Hwy. north of Bangor 660 1080
La Porte Rd. west of Bangor 420 6Qq
n,d. - no data
-5z-
Figure 9
x.981 Traffic VoiumE on r4ajor I~iighways
see j ac~Cet)
Figure 10
1981 ~iighway Capacity on A~ajor Highways
(see jacket)
It is important to note that not all the AADT counts shown in
Table 7 represent continuous traffic increases through the
period. In some cases , traffic decreases are reported, as in
the Durham, Biggs-Gridley, Palermo and Forbestown areas. {1) As
noted in the discussion on energy, which related traffic volume
declines to gasoline prase increases and the petxoleum shortages
of 1973-74 and 1979, many rural area traffic counts have shoi,rn
temporary declines in AADT during periods of unstable gasoline markets.
Traffic in Butte County's largest urban areas were affected less;
however declining AADT_growth rates are found in all urban areas
during pexaods of gasoline price and supply instability.
Varied Trip Generation Rates
A review of current traffic demand in Butte County indicates sub-
stantial variation in daily trip generation rates, particularly in
the County's rural are as. (2) For road planning purposes, the Public
forks Department has traditionally assigned an average of seven
daily trips per average residential dwelling unit while
slightly higher rates are normally applied to urban "areas.(3)
However, in the County's rural areas, and particularly in the more
remote foothill and mountain areas, trip generation rates (based on
population and dwelling unit data) decline sharply with increased
distance from uxban and employment centers. Also, it appears that
faathill and mountain communities with stronger community centers
have even lower trip generation rates. Extensive xetirement
populations in these rural axeas would also be cause for reduced
rural trip generation. An analysis of remote rural foothill.
community .trip generation reveals trip generation rates ranging from
near 4.0 to 6.0 average daily trips per dwelling unit, except in
the Can caw planning area, where it appears the trap rates are even
lower. .
(l) Traffic decreases in the Durham area were primarily due to
changing the location of Butte Community College Pram Durham
to its present site.
(2) l~iatox vehicle trap generation rates are assigned to different
land uses fox transportation planning purposes. .Rates are
expressed as the number of daily trip ends each category of
land use will generate, on the average. For example, an urban
single family residential home could be assigned a trip genera-
tion rate of 1~ trips per day. This would mean that five round
trips were generated by that land use per day; (a.e. leaving
and returning to the home). Other land uses, such as commercial
uses, are assessed trip generation rates teased on trip ends
in•~.a similar fashion, but they are established on floor space
criteria such as commercial sc~uaxe-footage.
(3) See Appendix C Average Trip Generation Rates for Common
Land Uses.
-53-
6.32 Assessment of Pro'ected Traffic Growth b Plannin Area
Year 2000 population forecasts have been assigned to sixteen
planning areas which correspond to U. S. Census information b~und-
aries (see Figure ~ }. The following review of each planning area
is an important part of making future traffic estimates on Butte
County arterial and major roads.
Nord - A nearly tripled population is forecasted to he located
mostly in the extreme north Chico area around the Keefer Raad area.
Little population growth is expected west of State Route 99. Road
capacity is not seen as a problem, but increased AADT may negatively
impact Chico urban area circulation plans since growth in the Noxd
planning area will be highly dependent on the Chico economy. Traffic
growth on State Route 32 to Glenn County and State Route 99 to Tehama
County is expected to increase at rates similar to the last ten
years, due largely to slow growth in those adjacent counties and
increased intercounty commerce resulting from Chico urban area
growth.
Forest Ranch - Cahasset - A nearly tripled papulattan could be
accomo a e y current arterial and collector road capacity
if growth was distributed near existing rural communities in the
~I'anning area. Prtmaxy access roads that generate from the Chico
urban area and serve the Cahasset, Forest Ranch, Butte Meadows,
Stilson Canyon, and Butte Cxeek Canyon areas would be affected.by
reduced levels of service and much increased rural congestion,
but still within the levels of service capacity thresholds contained
in the Transportation Element. It should be noted that State Route 32
is designated as a controlled access highway by Caltrans in order
to provide safe and efficient high speed travel through tuts
planning area to interior northeast California. It is assumed
that appropriate steps will be taken to ensure that this designation
will remain for State Route 32 throughout the planning period to
year 2000.
Special circulation problems created by significant developmen t
and population increases away from the planning area's existing
communities and circulation network will require further study and
comprehensive specific plans should be developed. For example,
extensive development an Doe A4i11 Ridge would present such a pro-
blem and a comprehensive areawide specific plan for circulation
[as well as other planning concerns} and circulation financing is
needed before any significant development proposals are allowed
in such areas.(1}
utte ounty anning epartment, Analysts of Implications
Between the Chico Urban Area Transportation Study (CATS) and
State Route 32 Corridor Development, Aiemorandum from Iii. Radabaugh
to S, Streeter, January Z8, 1983.
-54-
Stirlin Cit - No significant population growth or land use changes
a~ ectang circulation are forecasted in this mountain planning area
to the year 20DD.
Chico - Chico will be t}ae dominant city in Butte County in year
~if~with approximately 3b percent of the countywide population
located within the influence of the urban area. The Ghico Urban
Area Transportation Study {GAYS) should be fine tuned and developed
into the basis far an urban area circulation element to be used for
planning and financing the urban area's future circulation needs
and requirements. Circulation plans should also encourage and
provide plans to ta}ce advantage of this city's tremendous potential
for public transportation and bicycle commuting.
Upper Ridge - Significant population growth in this mountain plan-
ning area wi11 cause need for a capacity expansion of the Skyway from
Paradise Pines to the Town of Paradise sometime during the 199D's.
A~.so, it wi11 be important to ensure adequate access for rapid
evaluation in case of a wildland fire emergency in this planning area.
The upper ridge will continue to have a very high percentage of senior
citiz.e.ns, and public transportation development far this area should,
he encouraged as part of a Paradise area transit system.
Paradise - The Paradise planning area is almost entirely under the
~ur"~``~'s~ ction of the Town of Paradise. The Town has developed a
circulation forecast to 199D which shows the need .for°several
street collector extensions to better serve east-west travel demand
in the community.
Goncow - The population of the Cancow area is forecasted to triple
y t e year 2aaD. However, because of extremely low trip generation
rates expected by the area's rural population, traffic growth
rates will increase slowly, resulting in no needed capacity expansion
of primary roads to the area.
Durham - Durham planning area population growth will occur at a
mu~Tc '~""slower rate than countywide growth and no road and highway
capacity increases will be required. However, State Route 99 which
borders the Central Butte planning area, will require increased
capacity before the early 1990's to a four-lane expressway due to
increasing regional and local traffic.
Central Butte - This foothill planning area's population growth
rate orecast is the highest in Butte County to the year 2DDa;
more than a bDa percent increase over 198D. This is due to a very
large inventory of land with a designation of Agricultural-Residential
{A-R) in the Land Use Element. This area is located mostly south
of the Town of Paradise and totals approximately 12,5DD acres. The
development potential from the A-R designation is extremely variable
due to its wide density range {1-4D dwelling units per acre) allowed.
-55-
This kind of density range does not allow the development of a con-
fident traffic forecast fox the planning area.
The planning area presents special problems for circulation fan-
ning and forecasting, in that the area is largely undeveloped,
contains difficult terrain, and could potentially impact circulation
plans and programs in the Town of Paradise and Cl~ico. Before
significant developments occur in this area, a comprehensive plan
should be developed for this planning area.
Feather Falls - Brush Creek - No significant population growtl~ or
an use c anges a ec xn g circulation are forecasted in this
mountain planning axea to the year 2000.
Table Mountain - A3ost of the growth iri this faot~iill planning area
way occur a ~acent to the Oroville planning area and new traffic
growth s~~ould be absorbed by the circulation netwoxk serving the
Oroville urban area.
Berry Creek - Hurleton - This foothill planning area is expected
to experience a~rap~id growth rate to the year 2000. A significant
portion of the parcels and land divisions that would accommodate
the projected grawth in this area have already been created but are
presently vacant. Primary access routes in this planning area are
State Route 162/Oroville-Quincy Highway which services the Berry
Creek area and Forbestawn Raad which services the fiurleton area and
paints east in the Feather Falls - Brush Creek area.
Due to lower trip generation xates found in this rural foothill
area; overall traffic growth rates are expected to be lower than
urban area growth rates. However, trip generation rates in areas
neaxest Oroville should be higl~er, due to increased economic
activity related to the Oroville urban area. Na arterial road or
highway capacity increases will be rec{uired to serve this axea,
howevex, a number of rural roads may be in need of improvement as
new residents entex the area.
Gridle~ Bi~~s - Ruxa1 traffic growth in this agricultural planning
area wi13 increase slowly to the year 2000-and no arterial capacity
increases are projected. Traffic growth in the City of Gridley
will cause the potential for reduced levels of service duxing peak
traffic hours on several downtown streets and State Route 99
immediately east of downtown Gridley.
Oroville - This planning area conforms closely to the area covered
zn~ity of Oroville's General Plan. Alt!~ough the Oxaville
-56-
area population growth rate is expected to be slightly slower than
the countywide rate to yeax 2000, it will result in significant
traffic increases throughout the planning area,
The long-range need for roadway expansion to a four-lane surface
street is forecasted for Oroville Dam Boulevard (State Route 162)
from 12th Street to Canyon Drive. Also, extension of Ophir Road
and a north-sautlt collector will be needed to service the south
Oroville area, which is expected to be the urban area's main growth
area. The expansion of State Route 162 will probably occur in
segments in the 1990's although more immediate sight distance
improvements at the west interchange of State Routes 70 and 162
would help to reduce the current accident rate and slightly improve
State Route i62 capacity at this point. It should be noted that
Caltrans has na current plans to widen the highway in this area.
Palermo - Traffic demand in this planning area is expected to double
y ie year 2000 on the area's collector roads, but no capacity
problems are foreseen. Traffic demand in this planning area will
be closely related to the nature of employment generation in the
south Oroville industrial area.
Honcut-Bangor - The pxesent system of major roads servicing this
p7 tinning area will have ample capacity to accommodate the area's
forecasted population. Aiost of the traffic-growth will occur in
the foothill portions around Bangor. Agricultural western portions
of the planning area will have s1o~a traffic growtl~.
6.33 -Road and Highway Requirements in the Year 2000
Level of Service - The need for the expansion of a road's capacity
is eterm~.ne y relative roadway congestion and expressed in
"level of service". Level of service is defined by the relationship
between traffic volume and maximum design capacity of a roadway.
The ratio between existing volume and. capacity of a roadway is then
assigned one of six sexvice .level ratings, Table 8, on the follow-
ing page, illustrates maximum roadway capacities at various levels
of service. A further description of level. of sexvice as it
relates to traffic capacity is found in Appendix D .
For planning purposes, it is desirable to maintain high-speed rural
highway traffic at a level of sexvice "B". ~iowever, service should
be considered acceptable at level of service "C", particularly when
fiscal, environmental, or site constraints are prohibitive. Urban
arterials and collectors should be planned to provide a level of
service "C", and be considered to be providing acceptable service at
level of service "D" when fiscal, environmental, or site constraints
are prohibitive.
-57-
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Rural Areas - Table 9, indicates traffic volume changes
etween 1971 and 1981 and provides a year 2000 forecast for the
State highway system in Butte County. Figure ~.1, on page b2a, shows
relative traffic volumes on major Butte County rural highways
forecasted for the year 2000. Figure 11 should be compaxed with
figures 9 and 10, in oxder to compare traffic volume changes between
1981 and 2000 and existing capacity fox the State highway system.
The following state highway segments have current or projected
capacity-safety problems that will need correction during the 1981
to 2000 planning period.
State Route 99 - 0.8 miles north of Pentz Road to 0.~ miles sa uth
o t e yway overcrossing. This segment of highway is presently,
near capacity and should be widened to a four-lane expressj,ray in
the near future, This highway provides the vital transportation
link between the Chico urban area and points to the south. This
project should receive a numlzer two priority ranking in future Butte
County RTIP's.
State Route 99 - Live Oak in Sutter County to East Biggs Highway
nee s continuous shoulders and channelizations to improve safety
as swell as capacity. This project should receive a number three
priority in future RTiP's.
State Route 32 - Gianella Bridge. The present bridge presents a
sa ety an occasional capacity problem due to its narrow lanes.
A new bridge with shoulders is needed. This project should receive
a number four priority izi future RTIP's.
Other capacity-related State highiaay projects in the 1983 RTIP and
which are located in rural areas of the County include;
Addition of passing lanes on State Route 70 from the ~'uba
County line to Oroville.
channelizations on State Route 99 from 0.5 miles south of Wilson
Landing to 0,5 miles north of Broyles Rvad.
Widening and strengthening of various State Route 70 bridges
at Iioncut Creek.
Also, the County should continue to support retention of rz.ght-of-way
for the future realignment of State Route 99 fxom the Sutter County
line to Iiamiltan Road, aithaugh the construction of this realign-
ment is not fa recasted during the planning period.
-59--
Table g
Existing and Forecasted Traffic Volumes
State Highway Routes in Butte County
{Annuallbrera¢e Daily Traffic)
Caltrans Butte County
20D0 2000
Location 1971 1981 Forecast Forecast
State Route 32
Glenn-Butte line 5600 8200 13000 13000
East Ave. (east} n.d. 98D0 155D0
W, 8th Ave. (east) 7500 10200 16100
152D0
Sacramento Ave. (east) 9ZD0 10$00 21200x
Chico - 1st St. (east) 8044 14700 19900x
Main St. {eastbound) 9100 Z1704x
14400
Dtain St, (westbound} 7500
21400x
act. SR 99 (eastbound} 8200
11300 z
Jct, SR 99 (westbound) 61D0
18700
Chico-Forest Ave, (west) 23.00 3000 16700
400D
Forest Ranch (west) 850 22D0 410D 4500
Lomo (west) 800 1500 2900 3000
Butte-Tehama line 550 820 1600 1600
State Route 70
Yuba-Butte line 5D00 63DD 9400 9400
Palermo Rd. (north)
,jct. 5R 162 (north) 5ID0
720D b7D0
iD2D0 1IZ00
122D0
16000xx
Oroville-hiontgamery
9400
14300 xx
22800
(north)
SR 149 south
Jct 7000 10300 14900 (south) i654pxx
.
Jct, SR 191 ~south~ 325D 4850
Pentz-tiagalia Hwy,
(south}
1450
1950
4100
(north}
404D
Concow-Big Bend Rd.
(south)
1400
n,d,
3204
(north)
2800
Butte-Fiumas line 1250 1200 1900 1900
State Route 99
Sutter-Butte line 6i0D 7700 10200 10200
Gridley-Y~ilsan Ave.
{north) 11900 12800 15D04 15000
Jct, SR 162 (north) 42D0 4700 7000 6000
-60-
Table 9 (continued)
Caltrans Butte County
2000 2040
. Location 1971 1981 Forecast Forecast
Jct. SR 149 (north) 8600 10600 16800 17500
,Teal Rd. (north) $800 14000 23000
24000
27200
Skyway (north) 14000 25000 50900x
Jct. 5R 32 {north) 17000 27560 6b700x
38700
Chico-Cohasset Rd.
(south) 13500 23100 48600x
Chico-Eaton Rd.
(south) S90D 9900 2D400x
12500
i:eefer Rd. (south) 5100 7600 1250D
Butte-Tehama line 4900 6000 9900 9900
State Route 149
Shippee Rd. 4300 b400 9300 11500
State Route 162
Glenn-Butte line 83D 880 150p 1200
Jct. 5R 99 (Biggs
north} 630 700 1500 900
Jct. SR 99 [Richvale
east) 1750 2100 3400 2300
Oroville-Larkin Rd.
(east] ;050 4300 4500 740pxx
Orovil a-12th St.
feast) 5100 8000 11400 12900xx
Jct. 5R 7D (east) 7050 20000 31500xx
35000
O~
velE
lv(
st)
st x
wy
i
)
ea n.d. 17900 27gOpx
173aD
Foothill Blvd, (east} n. d, 13.200 2D100xx
Oakvale Ave. {east) n.d, 8500 I6600xx
13700
i:eily Ridge Rd. (east) n. a. 3550 6200xx
6ZD0
Forbesto~Jn Rd. (east) n.d. 125D 3000
Farman Rd. {end SR) 77D 1050 1700 2500
State Route i91
Jet. SR 70 1856 3100 4SOD
Pentz Rd. (east) 1900 n.d. 5100
Paradise-Pears an Rd.
(end) 3850 b760 14700xxx
n. - no ata
x - Chico Area Transpo rtation Study, 1982
xx - Oroville Circulat ion Element (prorated)
xxx -Town of Yaraaise Traff+c Study, 1J::~
-b 1-
Discussion of Year 2DD0 Traffic Forecasts
Stat_ a H_~hway Routes in Butte County
The following discussion describes generally how year 20D0 traffic
forecasts for various locations an the state highway system were
derived by Butte County.
As the year 2000 traffic forecast indicates, Butte County utilized
the county-line and/or road segment ending forecasts o£ Caltrans
for State Route's 32, 70,99 and 1b2. In the Chico area, the forecasts
for State Route's 32 and 99 are from the 1982 Chico Urban Area Trans-
portation Study (CATS}, which has been cited previously. In the
Oroville area, the forecasts for State Route's 74 and 162 have been
prorated from the year 2005 forecast contained in the City a£
Oraville's Circulation Element (adopted in 1983). All other fore-
casted segments wexe based on a combination of estimated pass-
through traffic plus local trip generation expected by the year 2000
land use pattern affecting a particular forecasted segment.
Critical segments where forecasts could significantly vary from
actual year 2000 traffic conditions include:
State Route 32:
Glenn-Butte line - Caltrans forecast may be high, and will
depend on the rate of growth in northeastern Glenn County and
transpoxtation salience bet~reen Interstate ~ and the Chico
urban area economy, The forecast on State Route 32 in northwest
Chico is greater than that indicated by the CATS in order to
reflect the Caltrans county line forecast.
State Route 99:
Gridley - lvilson Ave. - This segment has shown significant
peak day and hour variations that are xelated to the level of
canning and food processing in Gridley, The future level of
canning activity in Gridley will be the mast influential factor
in determinixg the year 20oD traffic levels at this sefiment,
Meal Road (north) - This segment will be mast influenced by the
future traffic generation ability of Sutte Community College.
The segment forecast assumes that Butte Community College
enrollment will increase at a rate nearly parallel to Fiutte
County urban area population growth rates, as a whole.
State Route 191:
Paradise-Pearson Rd. - The Paradise Traffic Study forecast indi-
cates a significant build-out of the area within the Town limits
near this intersection.
-62-
Fi ~;ure 1 ~
Forecasted Tra~~ic Volume in Year 2DD0 an A~ajor Highways
(see jacket
-~ ~
County maintained rural roads wlYich are to be improved with FAS
funds have been prioritized in tlic: ItTP, These FAS system roads are
presently prioritized in the following order and :rill be con-
structed as federal funds and .lie lU percent local matching funds
are made available:
1. Keefer Road (3.Z miles from State Route 99 to Ilicks Lane)
2. Ord berry Roaci (River Road to one mile east)
3. Pentz Road (1.3 miles south, o:~ Paradise To-.~n limits to Town
limits)
4. Ophir Load Extension (1.5 miles :from Li ncoln Blvd. to Lower
~~yan otte Rcl. )
5. Col~.asset Road (2.5 mi les from 2'--? miles to 5 miles northeast
o Peefer x:oad)
b, Keefer Road. (2.2 mile s from 14icks Lane #;o Cohasset Road)
Urban Areas - Forecasted traffic demand for the urban areas of
Z'F~isco; "Z1'r~vilie, and Paradise have been based largely on local
forecasts enerated by each municipality. The extent of urbanize d
area arouii~ each But"te "County cbmmuz~~ty "'is shown graphically in
Figure A, which a.s found ~.n the Transportation Elementts policy
section.
6,12. Far transportation planning purposes, this Element has defined
each urban area by a composite of urban FAU boundaries and urban land
use plans for each city,
Projected year 2.000 arterial and major collector street and highway
networks £or the Ghico, Oroviile and Paradise and Gridley-Biggs
urban areas are indicated by Figures G, D, E and. F, respectively, in
Section 7.0. It is assumed that-present urban area street mainten-
ance and construction programs, along with new future programs, and
adherance to the pol~.cies and programs of Section 7.0 w~.11 work. .
talethex to determine futuxe priorities for specific urban area
street and highway projects.
Two urban area arterial highway projects have been given a high
priority due to present capacit?T-safety t roblems include:
State Route 162 (Oro Flom Blvd./Oroville) - Removal and replacement
o two rai roa underpasses wlLich presently constrict the. 4-lane
surface street to 2 lanes. This project should continue to receive
a number one priority ranking; in the Butte County RT~P, until it is
completed.
-63-
Sk wa (Paradise ax ~.) - Realignment of the Sk ~ _ay between Cautelenc
o~acT and 0.2 miles~.~nside of the northern Town of Paradise limits.
This portion of the Skyway between the Town of Paradise and Paradise
Pines is at ar near capacity. T}te realignment would follata the
imp raved grade of the abandoned Southern Pacific rail line to Stirling
City, making construction of a 2-lane expressway along this segment
possible. This project is committed for sttmmex, 1983.
A number of tjx•ban area street and highway improvements, both to increase
capacity on existing arterials and collectors, and for new road's, will
be required during the planning period, particularly in the Chico area
and south Oroville area. The actual. timing of these future highway
improvements should be a result of the refinement of land use based
traffic models fox both the Chico and Oroville areas.
5.4 Other Transportation Pdodes Forecast
6,41 Public Transportation
Public Transportation services, and uarticularly fixed routes and
scheduled bus systems, will. need to continue expanding to meet the
demands of the County's increasing population and ridership demand.
The following forecast assessment is provided for each area of Butte
County with an existing public transportation system or potential
far a system:
Intercity Transit - Butte County Transit (BCT) routing is not
expects to c ange significantly in t}~e near future. fiot~•ever,
BCT will continue to receive sustained ridership increases and addi-
tional buses and scheduling are likely in the future as: 1) BCT,
itself, matures and. increases its popularity; 2) urban area transit
systems mature and transit system interfacing imp raves with BCT;
and 3} as Butte County's urban area populations increase.
Chico Area Transit System - Chico's bus system will slowly increase
i s ra ers ip rate as tie system's routing is refined. In the long-
term, substantially increased Chico bus ridership rates will depend
on haw the system is integrated into transportation plans for
Chico's new residential growth areas and employment centers.
Oroville Transit System - Oxoville's bus system will gain slowly in
r~ ers ip as coot ination between it and BCT improves. Like Chico,
the Oroville system has Long-term opportunities to expand if properly
integrated into the transportation plans far new residential growth
and employment centers.
Paradise Area - The Paradise-Paradise Pines area is forecasted to be
serve y a acal fixed route bus system at least by the late
1980'x. T}le Paradise General Plan calls for a feasibility study of
a fixed route bus system serving the Town.(1) ,Because of substa~i-
tial population increases that are forecasted in the Paradise Pines
area it is•assumed that a Paradise area transit system would
evenL~ually include Paradise Pines in its service area.
ara~ ass ,ener~l ]'~.an, n~, ~'TI - Q1
-64-
Other Areas in Butte County - Although future population densities
in the remainder o utte aunty i~rill not likely justify additional
urban area or intercity fixed route systems, the Long-term potential
far j itney anti local sexvice vans and buses operating on a private
basis offer tl~e best solution to providing transit services to
rural areas of the County, particularly if gasoline prices should
increase sharply in the future.
Passenger Rail Service - Recent federal and state budget problems
iaF~ve~'le to considerat"ion of reduced service levels for Amtrak.
however, because the Coast Starlight route is a basic component
of Amtrak's national service system, no service cutbacks are expected.
6.42 Transportation Systems Managenkent
TS1~4 programs involving ridesharing, traffic flow and signal synchron-
ization, and bimodal traffic integration are expected to be expanded
at a moderate pace through the year 2000 planning pe riod.
The passage of SB 320, which allocates to BCAG funds for rideshare
programming, will be critical component to expanding the ridesharing
program in Butte County during the 1980'x. Bimodal integration and
route scheduling between public transit systems, ridesharing, formal
and informal park and ride lot locations, and urban bicycle programs
will gradually increase as planning and management decisions are
made to bettex accommodate and coordinate opportunities for bimodal
transportation programs. The actual rate of expansion of TSM
programs involving bimodal transportation and ridesharing will
largely depend on the following three factors; 1) the level of
governmental encouragement and support; 2} the effect of economic
conditions and gasoline prices on future auto travel demand, and
3} the rate of population growth in the County's urban areas.
Traffic flaw and signal synchronization improvements are assumed to
occur in each urban axea roughly proportional to population growth.
6.43 Bicycle Ridership
Bicycle ridership is expected to take a slowly increasing portion
of the total number of daily personal trips in urban areas through
the year 2000. However, the actual rate of increase will, like many
TSA~f programs, depend on 1} government- encouragement and support,
2) the effects of economic conditions and gasoline prices of future
auto travel demand, and 3} the rate of population growth.
An important part of any program to increase the rate of bicycle use
will be the adoption and implementation of hike plans for each
urban area, particularly for the Chico and Oroville areas. Cooper-
ative bike planning, includin g for the use of TDA allocations, between
-65-
Butte County and the cities will
Caltrans should be encouraged to
when reconstructing or expanding
period.
be necessary in many cases. Also,
develop improved bic3rcle access
state highways during the planning
Butte Gounty should develop a rural bicycle plan to serve urban
recreational demands. In most cases, bicycle commuting in rural
Butte Gounty titi~ill have little demand. The only exception would be
on routes between the Chico urban area and Butte Community College.
The following is a list and description of passible bicycle'
routes that should be considered in a rural bicycle plan:
State Route 99 - Pentz Road to Butte Community Colle e - This could
e a ass icyc e commu er route. a raps s ou insure ade-
quate bicycle access from Chico to Pentz Road during the widening of
State Route 99.
Chaco to Durham to Butte Community Colle e - This route would take
advantage o any'-a an anment o t e ort ern Sacramento Railway
line which parallels the Afidway between Chico and Durham. A
Class II route would be developed between Durham and Butte College.
State Route 32 - Chico to Forest Ranch - This leas become a popular
recreationa route an a tans s ou consider construction of a
Class I'~ facility.
Sacramento Ave. to River Road to Chico-River Road to Y-'. 5th.Ave.-
~.s as a popu ar recreation loop and the County Should consider
development of Class II and III facilities.
Larkin Road - State Route lb2 to Orovalle - Gridley ~iighwa
route~as--potential as a [:lass 11 or t3~ roc
Ora Dam Blvd. - east of State Route 162 to Dam - This could be a
popu ar rou e i a equa e y eve ope .
6.44 Pedestrian Access
Most future pedestrian access development will be parallel with
urban street development in urban growth areas. The development
of pedestrian recreational corridors will require that Butte
County and associate city governments take an active role in
developing such corridors. It should be noted that the Butte
County RTP's policies for pedestrian issues are similar to those
for bicycle ridership, including for the use of TDA funds.
6.45 Aviation Forecast
Butte County air travel is expected to increase at a faster rate
than countywide population growth to the mid 1990's, due largely
to new economies that are presented by increasing urban area
populations. Annual pex capita Sutte County air travel is expected
to increase from 0.57 trips/person-year in 1970 to over two trips/
person-year 1995,(1) It is forecasted that four-fifths of 1995
Butte County scheduled passenger air travel will be to and from
locations in California. Over 75 percent of this California
travel is forecasted to occur between Butte County and Southern
California. (2) Also, the number of aircraft based at County
airports is expected to increase at rates near population growth
rates. No major changes in airport classification or physical
layout is forecasted during the planning period.
6.46 Commercial Goods Transportation Forecast
Freight growth in trucking is expected parallel gross national
product growth during the long-term. For Butte County, trucking
will increase at a slightly greater rate than automobile VA~'T
growth, resulting in a slightly increased ratio of trucks in Butte
County's highway mode mix through the planning period.
Rail - Rail freight traffic rates will be closely tied to future
economic conditions. For Southern Pacific, a projected drop in
lumber shipments and increased competition from long haul trucking
will result in some~vhat reduced rail movement through Butte
County. IYestern Pacific's biggest slipping season is during the
late summer and fall when processed agricultural products axe
freighted east. The effects of the Union Pacific - Western Pacific
merger are not yet clear as to their impact on future ~~iestern Pacific
freight volumes.
The Sacramento Northern's recent drop in freight traffic is cause
for concern because it implies that the railway may be abandoned
by its owner. Any application for abandonment would be determined
by the federal Interstate Commerce Commission (ICC) after any
public protests were reviewed. The City of Chico has indicated its
willingness to protest abandonment: of Sacramento Northern rail
service to Butte County.
Unlit Gas and Electrical Corridors - No new natural gas or
gaso ine pipe znes or mayor a ectrlcal transmission lines are
forecasted to be constructed in Butte County during the planning
period. however, because of forecasted growth in the Paradise -
Paradise Pines area, PG~,E may construct a second parallel 60 KV
line next to its existing spur line between Chico and Paradise.
e a i oxnia vza ion ystem Plan, Volume II, Caltrans, May,
1981, Table V-2.
(2) Ibid, Table V-7.
-67-
Bi1TTL COC1i3TY
CIRG~LATION P,LI:i~iLhTT
Part Two
Section 7,0
Transportation Issues and Policies
BUTTE COUNTY
CIRCULATION EI.E3~fENT
Part Two
Section 7.0
Transportation Issues and Policies
This section identifies basic issues facing ~3utte County's transport-
ation future and describes goals, objectives, policies and specific
programs that will help guide the County in resolving transportation
issues. This section is topically organized and is based on data
and discussions found in Sections I.0 through 6.0 - Basis far
Policy. Policies and circulation maps are presented for both county-
wide and urban area transportation issues.
7.1 Transportation Issues
Many concerns and issues are described by the Cireulati.on Ele-
ment's Basis for Policy section. These are summarized by the follow-
ing list of transportation related questions:
1. How wi11 Butte County accommodate major increases in traffic
during the next 15 to 20 years, particularly in and between
its urban areas?
2, How will Butte County keep pace with road maintenance needs
in face of the prospects of continuing shortages of road
maintenance revenues?
3. 1-low are new road developments to be financed?
4. Haw active will the future state highway construction program
be in Butte County?
S. How can intergovernmental coordination of land use and trans-
portation plans be improved?
b. ~ti~ill the utilization of urban "holding zones" ax development
reserves which a11aw contiguous and timely urban expansion,
including for streets, be implemented?
7. What role will the availability and price of transportation
fuels play in our transportation future?
8. How will future foothill developments affect circulation along
present transportation corridors and around faothil~ commun-
ities and settlements?
-b8-
9. Will Butte County's road standards for land divisions insure
that future developments are served By adequately designed
local and collector street and road patterns?
l0. Will Butte County have adequate commuter air service in the
future?
11. How can transit use, carpooling, and bicycle commuting be
increased, and what other measures will be taken to reduce
energy consumption, roadway congestion, and air pollution
in Butte County?
-69-
7.2 Countywide Policies
.County~ride transportation policies have been organized in a
topical foxmat. T}yey apply to urban, suburban, and rural land use
and circulation situations t}~raughout the Cazxnty, and should be
crass-referenced, as appropriate, particularly r~~hen cumulative
effects and impacts can be created by an action or series of
actions over time. Figure A, on the following page, illustrates
the functional classification of major roads, excluding major
urban are a5, in Butte County to the year 200.
7.21 Transportation and Land Ilse
The California Government Code requires the County to correlate
its circulation plans to its land use planning pro~-ram. This
requirement reflects the close interrelationship between trans-
portation and land use planning.
Goal
l.d Develop a transportation system in a manner that encourages
efficient land utilization.
Objective
1,1 Accommodation of growth in areas presently serviceable
should occur in a manner which is cost effective, safe
and consiste~~t with environmental constraints.
Policies
1.1.1 Bxisting road capacity available wit}yin the County
road system shall be used to serve future develop-
ment, unless construction of anew road will
direct development into areas better suited for
development than areas presently served by exist-
in~; roads.
1.1.2 The transportation system shall be
a manner consistent with specified
ties and estimated trip generation
and which is consistent with the p
development in and around existin g
community centers.
developed in
land use densi- .
capabilities
~licy to encourage
cities and
1.1.3 Circulation plans for t}ie County's foothill
areas Should be designed around patterns u'}1ic}1
encourage development near existing high~ray corri-
dors and emphasize development near existing
rural community ce~~.te rs .
-70-
Figure A
Countywide Circulation
A~ajar Raad and Highway C~.assificatian
{see jacket)
1.1.4 New road construction
occur only to support
economy or to imp rave
serve a Countywide and
in agricultural areas will
the area's agricultural
capacity of highway's which
regional interest.
1.1.5 Construction of additional natural gas and petroleum
products pipelines and electrical transmission
Tines shall occur along existing utility corridors.
Objective
1.2 Provide an integrated system of roads and hi~;hways that
serve all land use needs.
F'alicies
1.2.1 Road system planning will emphasize preservation
of the exiating roadway network while working to
increase the efficiency and capacity of the
existing network.
1.2.2 The mast important roads and highways should be
designed and maintained to the highest possible
level of service and convenience. The least
important roads and highways should receive only
the improvements necessary to maintain their
structural integrity and operational safety.
The relative importance of the County's road
highway network is graphically illustrated in
Figure A.
1.P Program: Priority €'rogramming System - The
Public tiVorks Department, should develop a road
and highway maintenance p ra gram which allocates
funds according to functional classification
categories, as defined in Section 5.0 based on
relative needs in each category.
Implementation: Interdepartmental agreement to
implement a proposed allocation program.
7.22 Fiscal
Fiscal policies are mainly concerned with 1) how to adequately
finance future maintenance programs for existing roads, and 2) haw
to equitably finance new roads and necessary road capacity increases
caused by netiv development throughout the County. Poor prospects
fax substantially increased mad revenues to balance Butte County's
current road maintenance needs leads to a forecast of future
years of increasing road maintenance deficits in the County
(Section 4,0). .
-71-
Goal
Z.0 Road and highway programs should be defined so that the great-
est benefits are obtained with a minimum use of limited
financial resources.
Objective
2.1 Provide an adequate road system that is within the County's
abilit}~ to finance and maintain.
Pa11CieS
2.1.1 All available public and private sources shall be
used for the funding of road and highway develop-
ment, improvement and maintenance.
2.1.2 Butte County will encourage and support sincere
efforts by County residents to form assessment
districts fox road maintenance and~road drainage.
2.1.3 Tt is suggested that the utilization of County road
funds should focus on completing projects with a higher
priority before completing a lower priority project.
Proposed bridge and road projects will l~.e classified
in relation to the following priorities:
Priority One: ~Ur ent P_rajects - Projects of. an
urgent nature that are `c e~ar~Iy needed to protec
the health and safety of the traveling public such
as imminent bridge or xoad bed failure. Sample
project: reconstruction of a storm damaged road
bed where such damage has severely restricted
traffic and access.
Pxiorit Two: Safety Projects - Projects which
are inten ec~ to reTuce tie num er and severity
of accidents along a particular road segment.
Sample project: a change in road alignment where
an alternative is needed to reduce high accident
rates. Also includes traffic signals, stop signs,
cross-walks, and other traffic engineering decisions.
Priority Three: Reconstruction/I~9aintenance Projects
ro~ec w ~c invo ves ongoing main enance,
rel~abilitation, and reconstruction requirements
needed to preserve the existing bridge and road
network.
Sample project: routine maintenance to prevent
structural damage {as opposed to improvements in
surface rideability.
-~z-
Priorit Four: Ca~aci.t Improvements - Projects
t at ~.nva ve operational improvements to the exist-
ing road network that increase service efficiency
and capacity.
Sample project: widening of an arterial road to
increase capacity. Also includes Transportation
System !`ianagement projects,
'Priority Five : :Vew Con_ struction Pro 'ects -
~rojects which involve constru tiorio anew bridge or
road. New County construc-czon projects sha11
receive higher priority when they accommodate
development in locations within reasonable proximity
to centers of employment and shopping facilities
and which encourage the conservation of energy
in the transportation sector.
Sample project: construction of an urban area
collector street.
2.1.4 The County wi11 support State legislative efforts
which increase road maintenance funds and benefit
the County, as a whole.
[lbjectiye
2.2 Encourage development in areas that can be served by
public roads in a manner that does not become an economic
:burden to the County, aver time.
Policies
2.2.1 The short term and long term costs of improving
and maintaining the cixculation infrastructure
will be a major factor in determining land use
and development decisions.
z.2.2 The. County will, continue to seek, solutions to an
equitable allocation of road revenue resources.
2,2.3 The cost of new roads shall be borne as equitably
as possible among benefiting property owners and/or
users.
2.2.4 The County will pursue the' development of a
comprehensive fiscal impact model or program,
including for traffic and road impacts, to
assist in the analysis of cost and revenue balances
from proposed development projects.
-73-
2.P Program: The County will study, develop and imple-
ment,.as feasible, the following road related
fiscal programs, aver time:
1} Road assessment districts for maintenance
of new development.
2} Development fees for off-site traffic impacts
caused by new development. This program
should fi xst develop plans and schedules far
specific developments that will contribute
to the impact of circulation in ~surroundin g
locations, Along-term goal of a Countywide
developer fee program for traffic impacts
should be studied and implemented at a later
date. Comprehensive road development fee
programs s~tould be jointly developed bet~ti~een
the County and the cities of Butte County.
3} Drainage assessment districts in problem areas.
4} Enforceable road development agreements.
Implementation: :tear and I~4iddle Term.
7.23 Environmental
The following policies are in tended to help mitigate the en vironmental
impacts of transportation.
Goal
3.0 Minimize the negative impacts of transportation in the County.
Objective
3.1 Plan for transportation modes and strategies that ensure
goad air duality, reduce noise, reduce petroleum consump-
tion, reduce the need to devote additional lands to
transportation uses , and lessen the dangers presented
by transportation of hazardous materials in the County.
Policies
3.1.1 The County will support continued implementation
of the State motor vehicle emission control
p ragram as part of the effort to meet and maintain
federal air quality standards.
3.1.2 The effects of noise from County roads, highways,
and airports shall be mitigated to comply with
~,
DESI GNATED f :ZARDOUS AND TOXIC MA` TRIALS ROUTES
FIGURE B
. .,
• +~-rrturvstu rtuu ~ t
1
~ .)
all noise control policies in the Genexal Flan.
3.1.3 Butte Gounty> will encourage transportation modes
and programs that are capable of reducing total
and per capita transportation energy consumption,
including; public transit, bicycle commuting,
ridesharin g and carpooling, and increased federal
vehicle fuel efficiency standards.
3.1.4 The County shall enca~.~rale the continued develop-
ment and implementation of comprehensive state and
federal Programs for the regulation and monitorin g
of tlxe transportation of. hazardous and toxic mater-
ials on highways and. railways in and throi~bh the
County, Figure 33 indicates designated highway
and rail routes far the transportation of hazardous
and toxic materials in the County. Appropriate
fire and emergency 5erva.ces a~;ellcie5 shall partic-
ipate in plans for the transportation of hazardous
and toxic materials in and through tl~e County,
7.24 Road and Street Standards
policies far road and street standards should be approp riately
related to various amounts and-types of traffic that result from
servicing eiifferent land use densities and planning; areas. ~~'hile
design standards should ensure that a project he designed to solve
a n roblem at a specific location, they should also ensure that
circulation Patterns be able to meet future traffic requirements.
Goal
4.0 Provide for a road and highway networlt that meets the needs
of existing and anticipated movements of people and goods.
Obi active
4.1 Provide for adequately designed road and street patterns
to serve present and future traffic volumes.
Policies
4.1.1. For general and circulation planning purposes, the
County will follow the system of classification
of street, roads, and highways as described in
Section 5.0 and illustrated by Figure A.
4. i.2 Rural arterial road and highway traffic capacity
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levels should he planned to pr~
service "~", and be considered
acceptable service at -level of
fiscal, environmental, or site
prohibitive.
vide a level of
to be providing
service "C" ltirhen
constraints are
4.1.3 The'County wi11 insure that arterial routes continue
to serve as major traffic carriers and remain
free of unnecessary future intersections, driveways,
on-street parking, and traffic overloads.
4.1.4 Right-af-way needed far new roads or expansion of
existing roads s}call be planned far; land uses
that would preclude the timely development of such
right-of-way shall he prohi}yited.
4.1.5 The County will ensure that all road systems,
including pxivate roads, connect various properties
slated for {potential cevelopment, both to each
other .and to a puhliciy maintained road system.
4. 1.b Usable road easements of adequate width sha11 be
located as to most beneficially serve the needs
of all Parcels.
4.1..7 The County will, assume maintenance res;~onsibility
only for roads which meet full County standards.
4.1.8 Private subdivision roads will be built to full
County standards and they will tae privately
maintained as such throughout their maintenance
cycle.
4.1.9 Netiv roads resulting from land divisions will be
constructed to Cauiity standards whenever an area
has potential for significant traffic from future
development., A lotiaer standard may be considered
reasonable for roads w:~ich wi11 always serve as
only lot access and i~Tiil never be suitable to
become Corm ty roads.
4. 1. 1U Nesv land divisions s}~auld be ]~e1d responsible far
their ~ai.r share of the off-site road improvements
needed to handle the traffic increases that they
cause .
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4.1.11 The. County should encoural;e the utilization of
development agreements as one way of ensuring
that xoad development standards and plans are met,
4.]..12 The County will require erosion mitigation and
control plans for new developments and far road
encroachment permits to prevent soil loss during
and after road development activities,
4.1.13 The County iui11, on an on-going basis, evaluate
1vliicli roads are needed in the County roaci system
and wl~i.ch roads should perhaps revert to private
ownership.
4.1,.14 Proposals to abandon or close .County roads and
right-of-ways shall address-the impacts of
abandonment on local land uses identified in the
General Plan, and sixal l also address the impacts
of alternative l~ul?lic uses of the right-of-way,
such as bikeways, riding trails and hiI<in~* trails.
4.1.15 For tike purpose of Section Ci64$4 of t;ie~ Subdivi~
sian Tap Act, botI~ urban and rural arterials and
collectors shall be considered mayor thoroughfares.
4.P-1 Program: The County should adopt an erosion control
plan reclizirement fox tl~e canstrt~ction of~pu~~ic
and private roads .
Implementation: Adapt ordinance subsequent to
adoption of revised Natural Resources and Recreation
Element .
4.P-2 Program: The County should prepare a land division
design manual t,~hich pxovides detailed guidance
regarding improvement standards, including for
roads .
Implementation: Prepare and adopt t,Tithin four years,
7.25 Safety
The folla~,ring policies relate to safet}l issues involving police
and fire protective services. 4tl~er road and highti~ray safety
issues, such as roadway duality or hazardous materials transport-
ation are covered elsewhere.
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Ob "active
5.1 Support safety standards establis?led by emergency and
protective service agencies.
Policies
5.1.1 AlI road systems, both public and i~rivate, shall
provide for t}}e safe evacuation of residents
and adegtaate access far fire and other e~:ergency
services by providing at least tYao means of
emergency access to an interconnected collector
system.
5 .I .2 The County will work with --the -Butte County
Fire Department and the California Department
of Forestry towards developing emergency evacu-
ation routing plans for developing foothill
and mountain areas with extreme fire hazard
potential.
7.26 Special Studies and Specific Plans
Special studies and specific plans can serve to augment portions
of the General Plan, including circulation plans. Specific
plans can be a convenient way to systematically implement each
element of the General .Plan for designated planning areas in the
County.
Special circulation problems can be created by significantly large
development projects and cumulative population increases away
from the main circulation network serving existing communities
and urban centers and special studies and specific plans should
be developed before advancing with such developments.
Objective
6.1 P~.annin~* areas should be encouraged to develop -~lith
integrated, c:.f.ficient, anti ~~ell designed road systems.
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Policies
6.1.1 Specific plans shall be encouraged for land use,
circulation, and cumulative transportation
impacts for planning areas where land use design-
ations and zoning lacks significant prevision
to adequately project future traffic conditions
and/or where common circulation needs are
apprdpriate.
b.1 .2 Specific Plans developed for each planning area
shall address circulation.
6.P Program: The County's rural foothill planning
areas will, in many cases, require more precise
land use designations and zoning in the Land Use
Element before a reasonably accurate foothill
circulation program can be projected.
Implementation: Within three years after adoption
of revised Natural Resources and Recreation Element.
7.3 Urban Area Policies
Additional transportation policies for the County's urban areas
are intended to supplement countywide policies in the Chico, Oroville,
Paradise, and Gridley-Biggs areas. Figures C through F designate
the relative importance of the major street and highway network
for each urban area to year 2000.
7.31 InterZurisdictional.,Coordination
Early contact and continuing coordination helps to ensure that the
responsibilities and interests of all agencies are reflected and
that objectives and policies are met in the development process.
Goal
7.0 Promote coordinated transportation pro grams.
Objective
7.1 Gaordinate County transportation activities with all
affected agencies.
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Policies
7.1.1 Urban area transi~ortation planning boundaries
shall be established an the basis of urban area
land use plans, except in cases where unusual
circumstances are warranted.
7.1.2 The County will conduct land use and circulation
planning with the understanding that the Butte
County llssaciation ~f C,avernments will integrate
its transportation planning process with local
land use plans.
7.3.3 The County will consider cit}F-initiated circula-
tion element amendments to the County Transporta-
tion Element.
7.1.4 The County ar~d its cities should develop mutual
and complimentary policies regarding the timing
and phasing of net~~ urban area developments, as
necessary for the logical and timely development
of eac~t urban area circulation nettaorl:.
7.1.5 The County will jointly coordinate circulation
capital improvement programs wi tlt the respective
cities.
7.32 Urban Streets and Ili ,hwa rs
Urban area arterial and major collector street and Highway patterns
are defined by figures C througlt P, and should be used as a basis
for planning future circulation patterns and improvements. Goals
and objectives for urban streets and hiaht~;ays are similar to
countywide goals and objectives.
Policies
8.1.1 ilrlaan street and highway traffic capacity levels
sl~ould he planned to provide a level of service
"C", and ~e considered to be providing acceptable
service at level of service "I?" when fiscal,
environmental ar site constraints are prohibi-
tive.
3.1.2 Urbart area street improvement standards should
conform to city street standards and circulation
plans for each respective city.
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Figure C
Chico Urban Area
Major Street and Highway yetwork to Year 20Q0
(see jacket)
Figure D
Oroville Urban Area
Major Street and Highway Network to Year Z00~
(see jacket)
Figure E
Paradise Urban Area
Major Street and Highway Network to Year 2000
(see jacket).
~i gure F
Gridley-Biggs Urban Area
Major Street and Fiig~iway Network to Year 20DQ
(see jacket]
8.1.3 Reduced street widths will be encouraged when
there are practical site planning opportunities
and development cost savings involved, while not
jeopardizing public safety and future capacity
requirements.
8.1.4 Arterial and collector streets shall be developed
so as not to~diminish the integrity and cohesive-
ness of urban neighborhoods.
8.1,5 major residential developments should ensure
adequate circulation by providing interconnecting
'loops and collector street patterns. Cut-de-sac
and dead-end streets s~~ould be avoided on streets
tz-ith more than twenty (20) units.
8.2.6 Trees located along urban streets should be preserved
or replaced in the event maintenance or upgrading
requires tree removal. Similar landscaping should
be considered in conjunction with the develop-
ment of new urban streets and parking facilities.
The County should continue working towards
finding new ways to finance street tree programs,
including far public and private sector contribu-
tians.
7,33 Public Transportation
Public transportation serves two basic functions for the County's
urban residents, including the provision of mobility for the
transportation disadvantaged and the pravision of a transportation
alternative to commuters, shoppers, and others.
Goal
~9,0 Provide public transportation services that are viable
transportation alternatives.
Objective
~.~. Public transportation pro grams will assure the continued
mobility of transportation disadvantaged persons.
Policies
9.x,.1 The County shall support local public
transportation services in the
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three largest urban areas and adenuate intercity
service to the Chico, Oxoville, Paradise, Gridley-
Biggs, and Palermo areas.
9.1.2 The County shall provide for coordination between
social service transportation providers.
9.1.3 The County sha11 provide a level of social
service transportation according to guidelines
approved by tl~e Butte County Association of
Governments.
9.1,4 The County shall continue to support door-to-door
transportation programs for low-mobility groups
according to guidelines approved by the Butte
county Association of Governments.
Objective
9.2 Public transportation programs will promote opportunities
for shopping, employment, education, health care, and
recreation, as funding and planning opportunities a11ow.
Policies
9,2.1 Public transportation use shall be encouraged
"through land use designations and zoning which
cluster areas of employment, areas of parking,
areas of commercial uses, and recreation areas,
as appropriate.
9.2,2 Developers of major traffic generating land uses
shall provide fixed transit facilities such as
bus shelters and pullouts, according to expected
demand,
7.34 Bicycle Transportation
Primary emphasis for establishing bicycle routes should be in and
near urban areas.
Goal
10.0 Provide far a safe and convenient bicycle_transportation system
which is integrated with other transportation modes.
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Objective
10.i Provide for adequate bicycle circulation and facilities
as a functional alternative to the automobile, and
for recxeation, as funding and planning opportunities allow.
Policies
10.1.1 The County will encourage the cities to pxepare
and propose comprehensive urban area bicycle
plans to the County for review and adoption,
10.1.2 Construction or expansion of alI major arterials
.shall consider bicycle paths of Class II or
better. _ .
10.1.3 Residential developments should incorporate
internal circulation networks that encourage
bicycle use and which connect to the external
bicycle circulation system.
Program: The County will. rnap an integrated
system of suggested rural bicycle routes which
focus nn serving as recreational routes around
urban areas and use the map as an initial step,
in conjunction with city bicycle plans, far
establishing a comprehensive bicycle plan.
Implementation: Near and middle term.
Objective
10.2 Provide a bicycle system which can be integrated with
ot~ier transportation modes.
Policies
10.2.1 Bicycle parking facilities should be encouraged
in apartment complexes, major commercial, pro-
fessional office, industrial, and educational
sites, along with good routes, which foster
blCyCle use.
10.2.2 Multi-modal transportation facilities such as
park-and-ride lots and bus stops, should provide
adequate and secure bicycle parking facilities.
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7.35 Pedestrian Circulat'i'on
'~Tost facilities for pedestrians are incorporated into street
design standards. The issue of pedestrian circulation also
involves recreational hiking and jogging trails.
Objective
11.1 Pedestrian access should be ensured throughout urban areas.
Policies
11.1.1 Sidewalks, ar their reasonable alternatives,
should be provided in all urban subdivisions.
11.1.2 ~Iandicapped access ~sha11 be in carparated into
all sidewalks and other pedestrian facilities
as required by State law.
11.1.3 Hiking and jogging corridors should be encouraged ,
in urban areas, as funding and planning opportunities
allow .
7.36 Air Transportation
Air transportation is a vital form of transportation that is
important to the economic well being of the County's communities.
Goal
12.0 Promote safe, effective, and efficient use of existing and
future air facilities.
Objective
12.1 Provide far compatible land uses in areas that may be
impacted by airport operations, sa to mitigate safety
and noise problems.
Policies
12.1.1 The County sha11 implement measures in unin-
corporated areas that pxavids for the continued
safe operation of airports.
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12.1:2 The County will ensure that land uses in the
vicinity of. public airports are compatible with
respective airport land use plans.
12.1.3 Private airstrips and landing fields shall be
controlled to ensure that they are outside of
flight paths to and from existing airports,
and that they do not provide a hazard yr annoy-
ance to neighboring areas.
x'•12 Program: The Airport Land Use Commission (Butte
County Planning Commission) sha11 adopt and
maintain airport land use plans for the Chico
and Oraville airports,
7.37 Aiulti-modal Txans ortation
b4ulti-modal transportation refers to the coordination of two or
more transportation modes. Coordination is encouraged by develop-
ing multi-modal transfer facilities, such as park-and-ride lots,
combining bus steps with bicycle parking, bicycle parking with
pedestrian-oriented developments, and adequate passenger waiting
facilities for intercity bus and rail transport.
Goal
13.0 aravide for a balanced and integrated community transportation
format,
Objective
13.1, Plan for transportation modes and strategies that ensure
coordinated and complimentary facilities and schwdules.
Policies
13.1.1 The County., will support the cities in the encour-
agement of ridesharing and carpooling programs
by large employers and public agencies.
].3.1.2 The Cou~ity shall encourage the provision, where
feasible, of bicycle and automobile storage
facilities tv be used in conjunction with public
transportation.
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13,1.3 ~ .~'e design and location of ;.::.,- development shall
consider and incorporate rrovisions far appro-
priate transportation modes.
;~~
13.1.4 Puvlic facilities shall be located and designed
to allow for convenient access and efficient
transportation of all intended users.
13,1.5 The County will continue to sunpart local
Amtrak passenger services.
7.38 Additional Urban Area Policies
Chico Urban' Area
14.1.1 The Gounty will maintain the integrity of the Chico
area "greenline" adopted in 1982.
14.1.2 The County will cooperate with the City of Chico and
the Air Pollution Control District in efforts to
reduce traffic related caxbon monoxide below levels
which violate national ambient air quality standards
in the Chico urban area,
14.1.3 The County will cooperate with the City of Chico in
continued refinement of the Chico Urban Area Transpor~
tatian Study (CATS} and its traffic projections and
fa recasts, The County will encourage Caltrans to
study future traffic impacts on State Routes 32 and 99
as they relate to refinement of the CATS.
14.1.4 The County will support the City of Chico in efforts
to retain Sacramento Northern rail service for the
community.
14.1.5 The County should work with the City of Chico for a
comprehensive solution to the role of Waxnex Street
in northwest Ghico.
Oroville Urban Area
14.1.5 The County will encourage Caltrans to reconstruct xailroad
crossings on State Route 162 at an early date.
14,1.6 The County will cooperate with the City of Oroville in
the preparation of a comprehensive transportation study
based on projected urban area land uses,
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