126.3 Alternatives Analysis
This portion of the LS contains documentation of how the study has progressed from initiation of a P&N to a preferred alternative. Beginning with the first wide range of alternatives considered, which are developed before, during and following the prelocation study meeting and the agency scoping meeting, this section explains in detail all alternatives considered in the development of the project in enough detail to justify why they were either dismissed from further study, modified, or carried forward. Sketches (these can include corridors on a map, typical sections etc.) of all ranges of alternative development should be included. As the range of alternatives is studied and screened down to a reasonable number, the screening process used is documented for inclusion within the environmental document.
Alternative corridors are defined by the district with input from the environmental section of the Design Division and are set at a width that will accommodate the maximum expected right of way width plus some additional width to allow for minor modifications. The width of the corridor must also be sufficient to address potential environmental impacts caused by the project. For example, for a new four-lane divided highway, the typical right of way width required is 250 ft. (76 m), but in an area of hilly terrain it may be necessary to acquire 350 to 400 ft. (107 to 122 m) of right of way to accommodate the cut and fill slopes. In this case, the alternative corridor width could be 400 ft. plus 200 ft. for adjustments, which amounts to a 600-foot corridor (122 m plus 61 m for a 183 m corridor). Each project will need to be analyzed for what the district designer and the environmental specialist believe to be a reasonable corridor width. In the case of a complex EIS, it may be advisable to look at preliminary study alternative corridors of 1000 ft. (305 m) or more that are later adjusted to final study alternative corridors of possibly 500 feet (152 m). As the study progresses, environmental analysis is performed on these alternative corridors and ultimately detailed analysis is performed on the corridor for the preferred alternative. So it is imperative that the corridors be a reasonable width minimizing the work effort required but wide enough to accommodate minor adjustments in alignment that normally occur during the study or preliminary design. The final alternative corridors that are analyzed for each alternative are shown and labeled on the LS exhibits as "Corridor Limits". During all phases of study, corridors need to accommodate the ultimate expected facility even if the initial project will be only a stage of the ultimate.
Significant points along the routes are numbered or labeled on the maps or mosaics for easy reference in the discussion of the alternatives. These points may be at intersections, bridges, county lines, direction reversals, alternate crossings, or any other point deemed significant to the route.
Within the corridor limits of the preferred alternative, a full environmental evaluation will have been completed prior to the final environmental document being approved. However, this does not mean that the corridor is "clear" of future environmental obligations. Alignment modification within the final corridor may impact areas or sites previously evaluated and identified, but not "cleared" because the original right of way limits needed would not have impacted it. The final corridor identified will clearly show the area studied and evaluated as a part of the environmental document preparation. Any modification to the alignment that would shift the improvement footprint outside of this corridor must go through additional environmental analysis as if it were a new corridor.
126.3.1 Final Study Alternatives
The LS generally includes consideration of several reasonable alternative locations along with the "no build" alternate. In urban areas, a TSM alternative may deserve consideration. The minimum number of "build" alternates carried forward in the report for consideration is two. The alternates proposed must be based on engineering and environmental constraints and must be reasonable build alternates that MoDOT would construct. Sufficient information must be provided concerning each alternate to clearly establish the fact that the preferred alternate is the best.
126.3.2 Cost Estimates
Complete right of way, utility adjustment, and construction cost estimates are an essential part of the analysis of alternates. Estimates are prepared for each alternate under consideration. All estimates are broken into sections that correspond to the description of the alternates. The cost estimates are broken into the following categories:
- Grading
- Paving
- Bridges
- Miscellaneous
- Utilities
- Right of Way (include relocation costs as a separate item)
- Environmental Mitigation (if substantial)
Also include with the estimates a tabulation of displacements (including businesses) for each alternate. This includes type and number of people (including employees) involved.
126.3.3 Satisfaction of the Purpose and Need
All final study alternates must be discussed in terms of how they satisfy the stated P&N of the project. In the event that capacity is stated as an issue in the P&N, then there needs to be a capacity and operational analysis of the final study alternates. LOS is calculated for logical sections for both construction year and design year traffic for the proposed facility. If the proposed facility is on relocation and the existing route will remain in service, the LOS must also be calculated for the traffic volumes (construction year and design year) remaining on the existing route. LOS must also be calculated for all major intersections for both years. When staged construction is involved, LOS must be calculated for the various stages.
126.3.4 Land Use Within the Study Area
This refers to how land within the study area is used. It could include agricultural, commercial, industrial, residential, conservation or others uses, or a combination of these.
Special land uses are identified. They generally include schools, churches, airports, golf courses, water and sewage treatment plants, commercial areas, watershed projects, undisturbed areas of natural flora, and other features of environmental significance.
Public lands (possible Section 4(f) or 6(f) lands) are defined as publicly owned lands having national, state or local significance that may include any of the following:
- Public parks and national forests.
- Recreational areas.
- Wildlife and waterfowl refuges.
- Historic sites (privately or publicly owned).
- City parks and local facilities available to the general public.
- Department of Conservation land.
Section 6(f) lands are parklands that have been funded with monies from the Land and Water Conservation Fund through the National Park Service. The Design Division has a current listing of parks and recreation areas, by county, that have Section 6(f) funds invested in them.
A description of the public areas or known historic sites, including maps, boundaries, area, master plans, local contacts, etc., are provided in the report so that coordination can begin with the FHWA regarding Section 4(f). A thorough investigation is made to determine the effect of the proposed location on these developments and lands. Land use plans and comprehensive traffic studies should be considered. Alternate locations must be considered to avoid Section 4(f) or Section 6(f) lands to possibly justify why an alternate impacting such areas must be selected. The Design Division will assist the district in coordinating efforts involving public lands.
The conceptual stage relocation information, furnished by district right of way personnel for the various locations studied, is summarized in the report. A statement concerning the social, economic, and environmental effects the location will have on any community is included by the Design Division.
Specific locations of above or below ground petroleum storage tanks or other hazardous waste sites are identified. A list of typical land uses associated with hazardous waste sites is available. Every effort must be made to avoid identified waste sites on the selected location unless the cost to mitigate the sites is less than that to avoid them.
When none of the alternates include a significant encroachment on any floodplain, a statement is included to that effect. If any alternate includes significant encroachment on the floodplain, it is identified and discussed in accordance with 23 CFR 650A.
The necessity of Section 404 permits is indicated. A discussion concerning the effect that each of the alternates will have on wetlands is also included.
The presence of any known archaeological and historical sites is described. Any buildings or other structures that are nearly 50 years old or greater, including bridges, are noted.
These factors are an important part of the LS and thorough investigation at the location stage will avoid complications at the design stage.
126.3.5 Construction Impacts
Utilities
A brief discussion is included to describe any major transmission lines, fiber optic lines, pipelines, sub-stations, railroads, water or sewage treatment plants or any other utility of significance in the vicinity of the improvement.
Handling Traffic
The method of handling traffic during construction is an important consideration. The need for short construction bypasses or long route bypasses or route closures is discussed here.
126.3.6 Disposition of Existing Route
The disposition of the existing roadway is considered very early in the preparation of the study. There are many ways in which to dispose of the existing roadway. Some of these may result in the roadway being retained by the Commission for its use and others may result in transfer of the roadway to a local government agency or even total abandonment.
Decisions regarding the disposition of the existing roadway will have a large impact on the amount of effort that needs to be focused on this area of the study. Alternatives which call for the retention of the existing roadway by the Commission will not need the same level of local government agency involvement and amount of discussion in the report as those which call for the roadway to be transferred to another agency.
The discussion of alternatives which call for the existing roadway to be retained by the Commission will need to include the comments of the local government agencies and show that they were taken into consideration while developing the alternatives, but will not require the concurrence of the local government agency in order to be considered viable. Alternatives that call for sections of the existing roadway to become the responsibility of the local government agency will require their concurrence in order to be considered viable. The discussion included in the report for these alternatives should fully discuss the level of effort which has been made to involve the local government agencies in the decision to transfer the responsibility to them and written documentation of their concurrence in that decision.
Where there is a high probability that portions of the existing roadway will not be incorporated into the new facility, but will need to be remain in place to serve local public or private interests, contact with the local governments is made as soon as possible to gain their comments regarding the possible options for the disposition of the existing roadway. In this case, the initial contact with the local governments should occur as close to the same time as the prelocation study meeting or the agency scoping meeting as possible. The local government's comments regarding the disposition of the existing roadway will need to be taken into account as the alternatives are developed for the study. The district is encouraged to begin this discussion early with local officials so the coordination information can be included in the environmental document.
Convey to Local Government Agency
Alternatives which call for the local government agency to accept responsibility for a section of the existing route will need the concurrence of the local government agency before it can be considered as a viable alternative for the study. Even though this may be the best option for disposing of the existing roadway, the alternative will need to be revised to include another method of disposal if the local government agency is not receptive to accepting responsibility for the section of existing roadway.
In order to document that the local government agency has given its concurrence in accepting the responsibility for a section of the existing roadway, some form of written documentation is needed. The best form of written documentation would be an agreement executed by the local government agency and the appropriate department staff that outlines the project in general terms and describes the general location of the sections to be accepted by the local government agency. If an executed agreement cannot be obtained, the next best form of documentation would be a copy of a resolution or an ordinance which conveys the governing body's intention to accept the sections of existing roadways and gives a general description and location of the sections to be accepted and a general description of the overall project.
If neither of these documents can be obtained, a letter from the local government agency, addressed to the district engineer, stating that they agree to accept responsibility for the sections of existing roadway will be acceptable. Even though this form of documentation is not as desirable as the other two, it will convey the intention of the local government to accept the sections of the existing roadway. This letter should also provide a general description of the location of the sections to be accepted and the project in general.
All three forms of documentation should also include language which indicates the local government agency will execute a roadway relinquishment agreement at the time the plans are developed in enough detail to allow the transferred sections to be described in specific terms. The specific terms of the roadway relinquishment agreement will include the right of way limits, station limits of the sections to be transferred, estimated maintenance costs, etc. Therefore, execution of this agreement will not be possible until the Change in Route Status Report has been approved.
Once the written documentation expressing the local government agency's willingness to accept the sections of the existing roadway is obtained, it is included in the study. This documentation may be included as an appendix and referred to in the study.
In the event that the local government agency refuses to accept responsibility for the recommended sections of existing roadway or will not provide the necessary written documentation, the alternative will need to be revised to include some other method for disposal of the existing roadway. These other methods might call for the sections of existing roadway to be retained in the state highway system or to be abandoned completely.
In any case, if none of the other methods for disposal of sections of the existing roadway can be utilized and the local government agencies refuse to accept responsibility for them, then the study must indicate that this alternative is not viable for these reasons. The alternative will then receive no further consideration in the study.
Convey to Adjacent Property Owners
Alternatives that recommend that sections of the existing route be conveyed to adjacent property owners will include a discussion of the efforts that were made to transfer the roadway to a local government agency prior to choosing this method of disposal. The report will focus on the efforts made to contact the property owner and discuss their willingness to accept the section of the existing roadway. If possible, the property owners written concurrence in these decisions is included in the report. If it is not possible to obtain the written concurrence of the property owner, but verbal commitments can be obtained this alternative can still be considered as viable. If the property owner strongly objects to this method of disposal of the existing route then one of the other methods for disposal must be chosen for the alternative to be considered as viable. If no other method of disposal can be utilized, then the alternative will receive no further consideration in the study.
Abandon the Route
When no other method of disposing of the existing route can be found then the option of abandonment should be explored. The report will include a discussion of the opinion of the district counsel or Chief Counsel's Office as to the ability of the department to successfully abandon the existing route. The report will also include discussion of the efforts that were made to seek some other methods for disposing of the existing route and a summary of the discussions with local government agencies and adjacent property owners about the disposal of the existing route. If the legal opinion is that the department can successfully abandon the section of the existing roadway, then this can be considered as a viable alternative for the study. However, if the legal opinion suggests that the department cannot successfully abandon the existing roadway and no other method of disposal can be found, then the alternative cannot be considered as viable. The alternative will then receive no further consideration in the study.
126.3.7 Comments and Recommendations
The district is to provide a brief summary of the prelocation meeting in this section. This summary will include the date of the meeting, the location and the number of people attending, as well as a summary of comments received either during or after the hearing. Specific public or agency comments concerning the purpose and need and on alternatives are to be noted.
The location study/environmental document addresses the ultimate facility. If construction of the facility will occur in stages, this is discussed in this section with the proper amount of information to document why a portion of the facility is not needed until in the future.
If a preferred alternative is going to be stated, that will occur in this section along with the reasons for the choice of any preferred alternative.