City of Douglas small area transportation study

              CITY OF DOUGLAS
Small Area Transportation Study
Final Report
Prepared for
City of Douglas
Prepared by
and
with
Lima & Associates
The Planning Center
July 2007
TABLE OF CONTENTS
Page
1. INTRODUCTION 1-1
PROJECT PURPOSE 1-1
PROJECT OBJECTIVES 1-1
ORGANIZATION OF REPORT 1-2
2. EXISTING ROADWAY AND TRAFFIC CONDITIONS 2-1
ROADWAY AND TRAFFIC DATA 2-1
Daily Traffic Volumes 2-1
Roadway Functional Classification 2-1
Existing Speed Limits and Number of Lanes 2-1
Hourly Traffic Volumes and Intersection Turn Movements 2-8
Traffic Volumes at the International Port of Entry (POE) 2-10
Truck Traffic in the Study Area 2-15
EXISTING LEVEL OF SERVICE AND TRAFFIC CIRCULATION ISSUES 2-15
TRAFFIC SIGNAL WARRANT EVALUATIONS 2-19
PARKING INVENTORY AND ANALYSIS 2-19
CRASH ANALYSIS 2-22
14TH Street at G Avenue 2-24
16th Street (SR 80) at Pan American Avenue 2-26
9th Street at Pan American Avenue 2-26
5th Street at Pan American Avenue 2-27
10th Street at A Avenue 2-28
11th Street at A Avenue 2-31
AREAS OF SIGNIFICANT PEDESTRIAN ACTIVITY 2-31
Port of Entry Area 2-31
The Downtown Area 2-31
15th Street Area 2-34
Curbing and Sidewalk Master Plan 2-34
AREAS OF SIGNIFICANT BICYCLE ACTIVITY 2-34
3. EXISTING TRANSIT CONDITIONS 3-1
EXISTING TRANSIT CHARACTERISTICS 3-1
Demographics 3-1
Current Mode to Work 3-2
EXISTING TRANSIT SERVICES 3-2
Douglas Shuttle 3-3
Food City – Port of Entry Shuttle 3-3
Catholic Community Services 3-3
Douglas Rides 3-3
Cochise Commuter 3-4
Dial-A-Ride 3-4
Douglas ARC 3-4
LOCAL TAXICAB OPERATORS 3-4
TABLE OF CONTENTS
3. EXISTING TRANSIT CONDITIONS (Continued)
AUTOTRANSPORTES TUFESA 3-5
PREVIOUS STUDIES AND PLANS 3-5
SUMMARY OF FINDINGS 3-5
Transit Needs 3-5
Key Recommendations of Previous Plans and Studies 3-5
City of Douglas Transit-Related Issues 3-5
4. EXISTING LAND USE DEVELOPMENT, POPULATION, AND EMPLOYMENT 4-1
YEAR 2005 LAND USE DEVELOPMENT 4-1
Traffic Analysis Zone System Description 4-1
Procedure for Updating 2000 Census Data to 2005 4-1
2005 POPULATION AND EMPLOYMENT ESTIMATES 4-3
Year 2005 Household Size, Housing Units and Occupied Housing 4-4
Year 2005 Employment Estimates 4-5
SCHOOL ENROLLMENT 4-5
HISPANIC POPULATION 4-7
POPULATION AGE 65 AND OLDER 4-7
5. FUTURE LAND USE AND SOCIO-ECONOMIC DATA 5-1
METHODOLOGY 5-1
LAND USE FORECAST 5-1
FORECAST POPULATION, HOUSING UNITS, AND OCCUPIED HOUSING 5-5
FORECAST RETAIL, OFFICE/SERVICE, AND GENERAL EMPLOYMENT 5-5
FORECAST EMPLOYMENT FOR MAJOR EMPLOYERS 5-5
FORECAST SCHOOL EMPLOYMENT AND ENROLLMENT 5-7
6. FORECAST FUTURE TRAVEL DEMAND AND TRAFFIC OPERATIONS
ANALYSIS 6-1
DAILY TRAFFIC FORECAST METHODOLOGY 6-1
AM AND PM PEAK-HOUR TRAFFIC ANALYSIS AND LEVEL OF SERVICE FOR
YEAR 2030 TRAFFIC 6-2
Year 2030 Level of Service Analysis 6-5
7. FUTURE MULTIMODAL CONDITIONS 7-1
FUTURE PUBLIC TRANSPORTATION CONDITIONS 7-1
TYPES OF TRANSIT VEHICLES AND SERVICES 7-5
Douglas Rides 7-5
Transportation Demand Management Alternatives 7-7
Potential Sources of Transit Funding 7-7
Coordinating Local Human Services Transportation Programs 7-8
RECOMMENDED TRANSIT SERVICES 7-8
Summary of Transit Findings 7-9
TABLE OF CONTENTS
Page
7. FUTURE MULTIMODAL CONDITIONS (Continued)
FUTURE PEDESTRIAN AND BICYCLE ACTIVITY AND FEATURES 7-11
8. SUMMARY OF TRANSPORTATION PLAN RECOMMENDED IMPROVEMENTS
AND ACTIONS 8-1
ROADWAY SYSTEM 8-1
Traffic Circulation and Operations Improvements 8-1
Douglas, Arizona U.S. Port of Entry Feasibility Study 2006 8-1
Safety Improvements 8-1
Downtown Parking 8-2
Recommendations from Previous ADOT Studies 8-5
PEDESTRIAN SYSTEM IMPROVEMENTS AND ACTIONS 8-6
BICYCLE SYSTEM IMPROVEMENTS AND ACTIONS 8-9
TRANSIT SYSTEM IMPLEMENTATION AND FUNDING 8-11
Public Transit Funding 8-12
9. SUMMARY OF PUBLIC INVOLVEMENT 9-1
INTRODUCTION 9-1
PUBLIC OPEN HOUSE #1 9-1
Meeting Purpose 9-1
Meeting Schedule and Location 9-1
Meeting Notice 9-1
Meeting Materials 9-1
Meeting Attendance 9-2
Comments Received from the Public 9-2
PUBLIC OPEN HOUSE #2 9-2
APPENDIX A
APPENDIX B
APPENDIX C
APPENDIX D
LIST OF EXHIBITS
Page
Exhibit 2-1 DAILY TRAFFIC COUNTS 2-2
Exhibit 2-2 EXISTING ROADWAY FUNCTIONAL CLASSIFICATION 2-3
Exhibit 2-3 FUNCTIONAL CLASSIFICATION SYSTEMS 2-4
Exhibit 2-4 EXISTING ROADWAY SPEED LIMITS 2-5
Exhibit 2-5 VIEW OF THE INTERSECTION OF SR 80 AND PAN AMERICAN AVENUE
LOOKING EAST ALONG SR 80
2-6
Exhibit 2-6 EXISTING ROADWAY NUMBER OF THROUGH LANES 2-7
Exhibit 2-7 LOCATIONS OF TURNING MOVEMENT COUNT DATA COLLECTION 2-9
Exhibit 2-8 ANNUAL PRIVATELY OWNED VEHICLES ENTERING THE US AT THE POE 2-11
Exhibit 2-9 ANNUAL TRUCK VOLUMES ENTERING THE US AT THE POE 2-11
Exhibit 2-10 ANNUAL BUS VOLUMES ENTERING THE US AT THE POE 2-12
Exhibit 2-11 ANNUAL PEDESTRIAN VOLUMES ENTERING THE US AT THE POE 2-12
Exhibit 2-12 POE WEEKDAY AVERAGE HOURLY INBOUND TOTAL TRAFFIC VOLUMES 2-13
Exhibit 2-13 POE WEEKDAY AVERAGE HOURLY INBOUND TRUCK VOLUME 2-14
Exhibit 2-14 POE WEEKDAY AVERAGE HOURLY OUTBOUND TOTAL TRAFFIC
VOLUMES
2-14
Exhibit 2-15 LEVEL OF SERVICE CRITERIA FOR STOP-CONTROLLED AND
SIGNALIZED INTERSECTIONS
2-15
Exhibit 2-16 EXAMPLES OF LEVEL OF SERVICE BY MODE FOR URBAN ROADWAYS 2-16
Exhibit 2-17 EXISTING CONDITION INTERSECTION LEVEL OF SERVICE RESULTS 2-18
Exhibit 2-18 PHOTOGRAPH OF ANGLE PARKING RESTRICTING CROSS-STREET
SIGHT DISTANCE
2-21
Exhibit 2-19 LOCATIONS OF POTENTIAL OFF-STREET PARKING 2-22
Exhibit 2-20 G AVENUE AT 14TH STREET LOOKING NORTH ALONG G AVENUE 2-24
Exhibit 2-21 TRANSITIONING FROM SR 80 TO G AVENUE, LOOKING SOUTHEAST
TOWARDS 14TH STREET
2-24
Exhibit 2-22 VIEW OF THE WEST LEG OF THE 9TH STREET PAN AMERICAN AVENUE
INTERSECTION LOOKING EAST
2-26
Exhibit 2-23 VIEW OF THE 5TH STREET / PAN AMERICAN AVENUE INTERSECTION
EASTBOUND APPROACH, LOOKING EAST
2-27
Exhibit 2-24 VIEW OF 10TH STREET AND A AVENUE INTERSECTION LOOKING NORTH
SHOWING ON-STREET PARKING NEAR THE INTERSECTION
2-28
Exhibit 2-25 VIEWS OF 10TH STREET AND A AVENUE INTERSECTION SHOWING
DRIVEWAY ACCESS TO ADJACENT GAS STATION/MINI-MART
2-29
Exhibit 2-26 VIEW OF G AVENUE LOOKING SOUTH FROM 10TH STREET 2-31
Exhibit 2-27 VIEW OF CURB EXTENSION WITH ANGLE PARKING IN DOWNTOWN
TUCSON, ARIZONA
2-32
LIST OF EXHIBITS
Page
Exhibit 2-28 PLAN VIEW ILLUSTRATION OF ANGLE PARKING WITH CURB
EXTENSIONS
2-32
Exhibit 3-1 STATEWIDE AND DOUGLAS AREA PERCENTAGES OF POPULATION
MORE LIKELY TO BE TRANSIT-DEPENDENT
3-1
Exhibit 3-2 MEANS OF TRANSPORTATION TO WORK BY PERSONS NOT DRIVING
ALONE
3-2
Exhibit 3-3 SUMMARY OF PREVIOUS STUDIES AND PLANS 3-6
Exhibit 4-1 DOUGLAS SMALL TRANSPORTATION AREA STUDY BOUNDARY AND
TAZ STRUCTURE
4-2
Exhibit 4-2 2005 TOTAL NUMBER OF HOUSING UNITS BASED ON 2000 CENSUS
AND NEW HOME BUILDING PERMITS ISSUED BY THE CITY
4-3
Exhibit 4-3 2004 AND 2005 ESTIMATES AND 1990 AND 2000 CENSUS COUNTS FOR
DOUGLAS AND PIRTLEVILLE
4-4
Exhibit 4-4 HOUSEHOLD SIZE FOR DOUGLAS AND PIRTLEVILLE 4-4
Exhibit 4-5 STUDY AREA POPULATION, HOUSING UNITS, AND OCCUPIED HOUSING
UNITS
4-5
Exhibit 4-6 2005 EMPLOYMENT BY EMPLOYMENT CATEGORY AND MAJOR
EMPLOYER AND SCHOOL ENROLLMENT
4-6
Exhibit 4-7 TOTAL SCHOOL ENROLLMENT FOR DOUGLAS UNIFIED SCHOOL
DISTRICT SCHOOLS
4-7
Exhibit 5-1 TAZs AT OR NEAR BUILDOUT 5-2
Exhibit 5-2 TAZs EXPERIENCING RESIDENTIAL AND NON-RESIDENTIAL GROWTH 5-3
Exhibit 5-3 TAZs EXPECTED TO EXPERIENCE NO GROWTH 5-4
Exhibit 5-4 FORECAST POPULATION, HOUSING UNITS, AND OCCUPIED HOUSING
UNITS
5-5
Exhibit 5-5 FORECAST RETAIL, OFFICE/SERVICE, AND GENERAL COMMERCIAL
EMPLOYMENT
5-5
Exhibit 5-6 2010, 2020, AND 2030 EMPLOYMENT BY MAJOR EMPLOYER BY TAZ 5-6
Exhibit 5-7 2010, 2020, AND 2030 DOUGLAS UNIFIED SCHOOL DISTRICT
EMPLOYMENT BY TAZ
5-7
Exhibit 5-8 2010, 2020, and 2030 DOUGLAS UNIFIED SCHOOL DISTRICT STUDENTS
BY TAZ
5-8
LIST OF EXHIBITS
Page
Exhibit 6-1 ESTIMATED AND FORECAST EXAMPLE DAILY TRAFFIC VOLUMES 6-2
Exhibit 6-2 2005 VOLUMES VS 2030 VOLUMES 6-3
Exhibit 6-3 ESTIMATED PERCENT TRAFFIC GROWTH FROM YEAR 2005 TO YEAR
2030
6-4
Exhibit 6-4 FORECAST ANNUAL TRAFFIC ENTERING THE U.S. THROUGH
THE PORT OF ENTRY
6-5
Exhibit 6-5 ESTIMATE YEAR 2030 LEVELS OF SERVICES 6-7
Exhibit 7-1 MINIMUM CONSOLIDATED RESIDENTIAL AND EMPLOYMENT DENSITIES
FOR VARIOUS TYPES OF TRANSIT SERVICES
7-1
Exhibit 7-2 2005 COMBINED POPULATION AND EMPLOYMENT DENSITY PER
SQUARE MILE BY TAZ
7-2
Exhibit 7-3 2030 COMBINED POPULATION AND EMPLOYMENT DENSITY PER
SQUARE MILE BY TAZ
7-3
Exhibit 7-4 MONTHLY FLUCTUATIONS IN THE MOTOR VEHICLE AND PEDESTRIAN
TRAFFIC AT THE PORT OF ENTRY
7-4
Exhibit 7-5 TRANSIT SERVICE TYPE DEFINITIONS 7-5
Exhibit 7-6 TYPES OF TRANSIT VEHICLES 7-6
Exhibit 7-7 PROPOSED TRANSIT SERVICE AREAS 7-9
Exhibit 7-8 MODERN PORTLAND STREETCAR 7-10
Exhibit 8-1 SUMMARY OF TRAFFIC ENGINEERING RECOMMENDED
IMPROVEMENTS AND ACTIONS
8-3
Exhibit 8-2 SUMMARY OF RECOMMENDED IMPROVEMENTS RESULTING FROM
THE CRASH ANALYSIS
8-4
Exhibit 8-3 SUMMARY OF RECOMMENDED ACTIONS REGARDING DOWNTOWN
PARKING
8-5
Exhibit 8-4 SUMMARY OF RECOMMENDED PEDESTRIAN SYSTEM PROJECTS AND
ACTIONS
8-8
Exhibit 8-5 SUMMARY OF RECOMMENDED BICYCLE SYSTEM PROJECTS AND
ACTIONS
8-10
Exhibit 8-6 TRANSPORTION IMPROVEMENT PLAN TRANSIT PROJECT LIST 8-11
Exhibit 8-7 SMALL TRANSIT VEHICLE ECONOMICS ESTIMATING TOOL VARIABLES 8-13
1-1
1. INTRODUCTION
PROJECT PURPOSE
The general purpose of a small area transportation study (SATS) is to provide a smaller
community, like the City of Douglas, Arizona, with guidance on how to address existing and
potential future transportation issues within the community. Typically, these studies are
conducted within growing communities where city staff, area residents, business owners, or
local decision makers have already identified some existing traffic issues and see the potential
need for transportation system improvements as the community continues to grow.
A SATS provides city staff and local decision makers with a list of transportation system
improvements to meet existing, mid-term, and long-term needs. This allows the community to
prioritize the improvements, budget for improvement implementation, and implement the
improvements in a manner that meets the needs of the community in the most cost-effective
manner. Local funding for transportation improvements is typically very limited, and in many
cases the needed roadway system improvements are on state-owned facilities. The state
highways may be the most significant transportation facilities in the area, carrying the highest
levels of traffic demand.
PROJECT OBJECTIVES
Key objectives of the SATS for the City of Douglas are to provide a comprehensive
transportation plan for the future growth in Douglas that will support and enhance cross-border
commercial traffic, as well as the increasing traffic demands resulting from new commercial and
residential developments. Another important objective is to analyze multi-modal transportation
alternatives, including possible transit, bicycle, and pedestrian improvements that will connect
existing and future activity centers within the study area. A third major objective is to provide a
transportation plan that supports the policies and strategies contained in the adopted 2003
General Plan for the City of Douglas, so that in combination, the transportation plan and the
General Plan provide a comprehensive planning approach for future city growth and
development.
To support these major objectives, other elements of the project are:
• Identify current regional economic trends.
• Identify regional impacts to the area, including border-crossing activities.
• Incorporate findings of on-going regional planning studies being conducted by ADOT.
• Update the year 2020 population and employment projections in the 2003 General Plan
to year 2030.
• Develop a traffic forecast that is based on future population and employment projections
and a distribution of development consistent with the 2003 General Plan.
• Evaluate traffic operations for year 2005 and 2030 and assess existing and future
roadway system improvement needs.
• Summarize the extent of the existing transit service provided in the study area.
• Evaluate existing and future travel patterns and demand that could be serviced by
transit, and develop transit service recommendations.
• Evaluate the need for improvements in pedestrian and bicycle facilities and develop
recommended improvements for these modes.
1-2
• Conduct a public involvement program for the project that both informs the public on
project activities and recommendations, and solicits appropriate information from the
public on study area transportation problems and potential solutions.
ORGANIZATION OF THE REPORT
The remainder of this document is organized in the following manner:
• Existing Roadway and Traffic Conditions
• Existing Transit Conditions
• Existing Land Development, Population, and Employment
• Future Land Use and Socio-Economic Data
• Forecast Travel Demand and Traffic Operations Analysis
• Future Multimodal Conditions
• Summary of Existing and Future Deficiencies and Recommendations
• Summary of Public Involvement Activities and Responses
2-1
2. EXISTING ROADWAY AND TRAFFIC CONDITIONS
Existing conditions data for the study area were gathered from several sources, including the
state Highway Performance Monitoring System (HPMS) database, previous traffic studies
conducted within the study area, the Arizona Department of Transportation (ADOT), the 2000
US Census, the adopted 2003 Douglas General Plan, the US Customs Service, area transit
service providers, the City of Douglas, the Douglas Unified School District, and field data
collection conducted by the Project Team. This section provides a summary of the existing
roadway and traffic conditions. Additional details on data used in this study are provided later in
this chapter.
ROADWAY AND TRAFFIC DATA
Daily Traffic Volumes
Average daily traffic volume data were compiled from the ADOT Year 2005 HPMS database.
Additional average daily traffic data were provided by ADOT from permanent traffic count
stations located on state highways in the study area, and by the US Customs Service for traffic
at the Douglas Port of Entry. These data are summarized in Exhibit 2-1. SR 80 from US 191 to
Pan American Avenue, Pan American Avenue from the Port of Entry (POE) to SR 80, and 10th
Street from Pan American Avenue to Florida Avenue are the major traffic carriers in the study
area with 10,000 to 20,000 vehicles per day. Other roadways in the study area typically
average less than 10,000 vehicles per day.
Roadway Functional Classification
The existing roadway functional classification for the study area roadways is provided in
Exhibit 2-2. Functional classification is the process by which streets and highways are grouped
into classes, or systems, according to the character of traffic service that they are intended to
provide. There are three highway functional classifications: arterial, collector, and local roads.
All streets and highways are grouped into one of these classes, depending on the character of
the traffic (i.e., local or long distance) and the degree of land access that they allow. These
classifications are described in Exhibit 2-3.
Existing Speed Limits and Number of Lanes
The existing speed limits in the study area were compiled from the HPMS database and through
a field review for the study area roadways. Exhibit 2-4 provides a summary of the existing
speed limit information. The analysis of the existing speed limits identified some minor issues
that should be addressed by the City of Douglas:
• In a few instances, the speed limits on a collector roadway were posted with different
limits in opposite directions of travel (e.g., A Avenue from 16th Street to 6th Street is
posted 30 mph southbound and 25 mph northbound) with no apparent reason for the
difference.
• SR 80 transitions to G Avenue at the intersection of Pan American Avenue. SR 80 is a
major arterial posted at 40 mph approaching the intersection, and G Avenue is a minor
arterial that enters the downtown with a speed limit of 25 mph. There are no speed limit
signs posted on G Avenue at the Pan American Avenue intersection alerting motorists
on SR 80 of the change in the speed limit (See Exhibit 2-5) as they cross Pan American
Avenue.
Exhibit 2-1
DAILY TRAFFIC COUNTS
2-2
Exhibit 2-2
EXISTING ROADWAY FUNCTIONAL CLASSIFICATION
2-3
2-4
Exhibit 2-3
FUNCTIONAL CLASSIFICATION SYSTEMS
Functional System Services Provided
Arterial Provides the highest level of service at the greatest speed for the longest
uninterrupted distance, with some degree of access control.
Collector Provides a less highly developed level of service at a lower speed for
shorter distances by collecting traffic from local roads and connecting
them with arterials.
Local Consists of all roads not defined as arterials or collectors; primarily
provides access to land with little or no through movement.
Exhibit 2-4
EXISTING ROADWAY SPEED LIMITS
2-5
2-6
Exhibit 2-5
VIEW OF THE INTERSECTION OF SR 80 AND
PAN AMERICAN AVENUE LOOKING EAST ALONG SR 80
• The posted speed limit along 10th Street is inconsistent. Between A Avenue and
Washington Avenue the speed limit is 30 mph, while west of A Avenue, and east of
Washington Avenue it is posted at 25 mph.
• From the limited field review, it is suggested that a complete field inventory of speed limit
posting be conducted by the City of Douglas to identify and correct inconsistencies.
The existing roadway number of travel lanes was also compiled from the HPMS database and
through a field review of the study area roadways. Exhibit 2-6 provides a summary of the
existing number of through lanes between major intersections.
Exhibit 2-6
EXISTING ROADWAY NUMBER OF THROUGH LANES
2-7
2-8
Hourly Traffic Volumes and Intersection Turn Movements
Four traffic studies have been conducted in Douglas since year 2002. These studies are:
• ADOT Traffic Signal Evaluation: US191B at 10th Street, February 2003.
• SR80/US191 Intersection Study, August 2003.
• Wal-Mart Supercenter Chino/5th Street Final Traffic Impact Analysis, December 2003.
• Rancho La Perilla Estates Traffic Impact Analysis Report, December 2004.
These studies contained intersection turning movement counts for 10 intersections of
importance to the SATS. These intersections are indicated in Exhibit 2-7.
Turning-movement volumes for these locations were used as part of the database to develop
the existing conditions AM and PM peak-hour traffic volumes for the study area. The process
for developing these traffic volumes is described in Working Paper #1 of this study.
Additional turning movement traffic data were collected at a sample of 17 intersections within
the study area on typical weekdays during the AM and PM peak hours of travel on September
21 and 22, 2005. The peak travel hours were identified to be in the time periods from 7:00 to
9:00 AM, and 3:00 to 5:00 PM. The locations of these 17 sample intersections are provided in
Exhibit 2-7, along with the locations of turning movement traffic data taken from previous
studies.
These data were used to evaluate existing traffic operations and levels of service at the
intersections within the study area. The details of the process for developing the turning
movement data are provided in Working Paper #1 of this study.
Exhibit 2-7
LOCATIONS OF TURNING MOVEMENT COUNT DATA COLLECTION
2-9
2-10
Traffic Volumes at the International Port of Entry (POE)
Traffic volumes at the Douglas POE were obtained from the US Customs Service. For traffic
entering the US from Mexico, data are collected separately for trucks, defined as commercial
vehicles bringing merchandise into the US, and privately owned vehicles (POVs) consisting of
all other vehicles (cars, pickup trucks, passenger vans, etc., except buses). Buses are
commercially operated vehicles that transport paying passengers, which includes smaller
shuttle buses that are commercially operated.
Annual summaries of traffic entering the US for the 11-year period 1995 through 2005 are
provided in Exhibits 2-8 through 2-11. POVs entering the US peaked in year 2002 and have
declined slightly since then. Truck volumes entering the US peaked in year 1996 and then
declined steadily through 2002. Since 2002, truck volumes have increased slightly in 2003
2004, and 2005. Bus volumes entering the US have grown steadily since 1995, with a
significant increase from year 2000 through year 2003. However, during 2004 and again during
2005 bus volumes declined sharply. The number of pedestrians entering the US through the
POE showed a general increase each year from 1995 through 2003, but a sharp decline in
numbers occurred during 2004 yielding the lowest value for the 11-year period. Pedestrian
traffic then increased significantly from the year 2004 low value during 2005, which may be
directly related to the decline in bus traffic crossing the border during 2005.
There is no clear trend exhibited in the annual traffic volumes indicating what might be expected
in the future. While Douglas continues to develop commercial activities near the border it
should be expected that the number of POVs, pedestrians, and buses will also increase. While
truck volumes have been trending upwards since 2002, the 2004 and 2005 volumes are still
substantially below the peak volumes in 1996.
Data for the number of vehicles entering the US and leaving the US to Mexico by hour of the
day were also provided by US Customs for selected days. Hourly data were provided for typical
weekdays (Tuesday through Thursday) for October and November 2004, and for August and
September 2005. These data were used primarily for the evaluation of traffic operations during
the peak traffic hours of the day. Inbound hourly data are available for passenger vehicles and
buses combined, and trucks. Outbound data are not available by vehicle type, and are
presented as the total number of vehicles per hour.
The average hourly inbound total traffic volume for a typical weekday is provided in Exhibit 2-12.
The average hourly volume for inbound trucks is provided in Exhibit 2-13. The average hourly
total outbound traffic volume for a typical weekday is provided in Exhibit 2-14.
2-11
Exhibit 2-8
ANNUAL PRIVATELY OWNED
VEHICLES ENERING THE US AT THE POE
Source: US Customs Service, Tucson, Arizona.
Exhibit 2-9
ANNUAL TRUCK VOLUMES
ENTERING THE US AT THE POE
Source: US Customs Service, Tucson, Arizona.
Annual Privately Owned Vehicle (POV) Volumes Entering
the US
0
500,000
1,000,000
1,500,000
2,000,000
2,500,000
1995
1996
1997
1998
1999
2000
2001
2002
2003
2004
2005
Year
Volume (veh per year)
Annual Truck Volumes Entering the US
0
5,000
10,000
15,000
20,000
25,000
30,000
35,000
40,000
1995
1996
1997
1998
1999
2000
2001
2002
2003
2004
2005
Year
Volume (veh per year)
2-12
Exhibit 2-10
ANNUAL BUS VOLUMES
ENTERING THE US AT THE POE
Source: US Customs Service, Tucson, Arizona.
Exhibit 2-11
ANNUAL PEDESTRIAN VOLUMES
ENTERING THE US AT THE POE
Source: US Customs Service, Tucson, Arizona.
Annual Bus Volumes Entering the US
0
1,000
2,000
3,000
4,000
5,000
6,000
7,000
1995
1996
1997
1998
1999
2000
2001
2002
2003
2004
2005
Year
Volume (veh per year)
Annual Pedestrian Volumes Entering the US
0
100,000
200,000
300,000
400,000
500,000
600,000
700,000
800,000
900,000
1995
1996
1997
1998
1999
2000
2001
2002
2003
2004
2005
Year
Volume (persons per year)
2-13
Exhibit 2-12
POE WEEKDAY AVERAGE HOURLY
INBOUND TOTAL TRAFFIC VOLUMES
Source: US Customs Service, Tucson, Arizona. Tuesday, Wednesday, Thursday data. August and
September 2005, and October and November 2004.
Average Hourly Inbound Total Traffic Volumes
0
50
100
150
200
250
300
350
400
00
01
02
03
04
05
06
07
08
09
10
11
12
13
14
15
16
17
18
19
20
21
22
23
Hour Beginning
Volume
2004
2005
2-14
Exhibit 2-13
POE WEEKDAY AVERAGE HOURLY
INBOUND TRUCK VOLUME
Average Hourly Inbound Truck Volume
0
2
4
6
8
10
12
14
8 9 10 11 12 13 14 15 16
Hour Beginning
Volume
2004
2005
Source: US Customs Service, Tucson, Arizona. Tuesday, Wednesday, Thursday data. August and
September 2005, and October and November 2004.
Exhibit 2-14
POE WEEKDAY AVERAGE HOURLY
OUTBOUND TOTAL TRAFFIC VOLUMES
Source: US Customs Service, Tucson, Arizona. Tuesday, Wednesday, Thursday data. August and
September 2005, and October and November 2004
Average Hourly Outbound Total Traffic Volumes
0
100
200
300
400
500
00
01
02
03
04
05
06
07
08
09
10
11
12
13
14
15
16
17
18
19
20
21
22
23
Hour Beginning
Volume
2004
2005
2-15
Truck Traffic in the Study Area
There is no information available on the amount of truck traffic on the study area roadways east
of Pan American Avenue or north of SR 80, except along US 191. The most current information
on truck volumes is from the US Customs Service as discussed above and from the SR 80/
US 191 Intersection Study, Final Report (August 2003) prepared for ADOT.
EXISTING LEVEL OF SERVICE AND TRAFFIC CIRCULATION ISSUES
Level of service (LOS) is a quantitative stratification of the quality of service provided by
elements of the transportation system. LOS reflects the quality of service as measured by a
scale representing the generalized levels of congestion and travel delay on the highway system.
LOS is divided into six letter grades ranging from “A” to “F”, with “A” being the best (no
congestion and virtually no delay to highway travel), and “F” being the worst (traffic volumes
exceed the capacity of the roadway resulting in significant congestion and high levels of delay).
The engineering standards for estimating traffic delays and LOS under various types of highway
conditions are contained in the Highway Capacity Manual 2000, published by the Transportation
Research Board. The relationships between travel delay and LOS used in the Highway
Capacity Manual 2000 are presented in Exhibit 2-15.
Exhibit 2-15
LEVEL OF SERVICE CRITERIA FOR
STOP-CONTROLLED AND SIGNALIZED INTERSECTIONS
Level of Service
Stop Controlled
Intersections
Average Delay
(seconds/vehicle)
Signalized
Intersections
Average Delay
(seconds/vehicle)
A < 10 < 10
B > 10 to 15 > 10 to 20
C > 15 to 25 > 20 to 35
D > 25 to 35 > 35 to 55
E > 35 to 50 > 55 to 80
F > 50 > 80
Source: Highway Capacity Manual 2000
The photographs in Exhibit 2-16 are provided to assist in the understanding of the LOS concept.
These photographs depict typical traffic conditions associated with the various LOS categories
for an arterial roadway with traffic signals. LOS A, B, and C and considered very good with low
levels of delay, and not in need of remedial measures. For transportation planning studies LOS
D conditions are considered adequate and not in need of improvements to address congestion.
For developed urban areas such as a city downtown, LOS D is often used as the desirable
standard for long-term future travel conditions.
For this planning study the estimates of travel delay and LOS were based on the analysis of
traffic delay at signalized and stop-controlled intersections within the study area. Peak-hour
level of service and congestion were estimated using the computer software
Synchro/SimTraffic. Initially, the SimTraffic micro-simulation model was used to determine if
there were any significant congestion problems creating traffic back-ups that impacted upstream
intersections.
2-16
This phenomenon was not present in the simulation and was not noted in the field review of the
AM and PM peak-hour traffic conditions. Therefore, it was decided that the Synchro analysis of
intersection operations, based on the Highway Capacity Manual 2000 procedures, would
provide reasonable estimates of intersection approach levels of service.
A summary table of intersection approach level of service for each intersection in the analysis
network is provided in the Appendix. Exhibit 2-17 provides a summary of only those intersection
approaches with existing congestion issues (LOS E and F conditions) and those approaches
with potential or emerging congestions issues (LOS D) during the AM and PM peak-hours,
respectively.
Exhibit 2-16
EXAMPLES OF LEVEL OF SERVICE BY MODE FOR URBAN ROADWAYS
Source: Florida Department of Transportation, Quality/Level of Service Handbook, 2002.
The following locations are indicated to have existing or emerging congestion problems during
the morning peak-hour:
• Northbound approach at the intersection of San Antonio Avenue and 15th Street - LOS E
(capacity), stop controlled. This intersection is adjacent to a middle school located in the
northwest quadrant of the intersection, and the congestion was observed in a field
review to be directly related to the arrival of children for school. A four-way stop control
was tested using Synchro and found to provide a much improved LOS on the
2-17
northbound approach with reasonable levels of service on all other approaches. This
intersection may be a candidate for a future traffic signal, but a traffic signal is not
warranted at this time.
The following locations are indicated to have existing or emerging congestion problems during
the afternoon peak-hour:
• Westbound approach of 14th Street at Pan American Avenue – LOS D (emerging
congestion) stop controlled. No remedial action is required at this time.
• Eastbound and westbound approaches of 9th Street at Pan American Avenue – LOS E
(capacity), stop-controlled. The westbound traffic operations may be improved with the
installation of the traffic signal one block north at 10th Street. Some westbound left-turning
and though traffic may divert to 10th Street rather than be delayed at the 9th
Street intersection. An option may be to prohibit through and left-turn movements on
the eastbound and westbound approaches.
• Northbound approach of San Antonio Avenue at 15th Street – LOS E (capacity) stop
controlled. The concentration of four schools (see discussion of pedestrian activity
below) along 15th Street between Florida and Washington Avenues creates some traffic
peaking during morning and afternoon associated with school traffic at this location.
This intersection may be a candidate for a future traffic signal, but a signal is not
warranted at this time. An all-way stop control may provide better traffic operations at
this location, but an all-way stop warrant analysis should be conducted to determine if
this treatment is warranted before installation.
Exhibit 2-17
EXISTING CONDITION INTERSECTION LEVEL OF SERVICE RESULTS
2-18
2-19
TRAFFIC SIGNAL WARRANT EVALUATIONS
Three intersections were identified for traffic signal warrant analyses based on the existing
condition level of service analysis. These intersections are:
• 15th Street and San Antonio Avenue
• 15th Street and Washington Avenue
• 10th Street and Florida Avenue
Twenty-four hour traffic count data were collected at each of these intersections on Tuesday,
October 17, 2006 and Thursday, October 19, 2006. These data were used to evaluate the
traffic volume signal warrants as presented in the 2003 Manual on Uniform Traffic Control
Devices (MUTCD). The details of the analysis and the data are contained in a separate report
prepared for this study (Three Intersections – Signal Warrant Analysis, prepared for the City of
Douglas, October 2006). These data were also used to update the traffic volumes for the
existing level of service analysis, which resulted in an improved level of service estimate at the
intersection of 15th Street and Washington Avenue, and 10th Street and Florida Avenue.
The signal warrant analyses indicated that none of these three intersections warrants a traffic
signal based on existing traffic volumes. Traffic conditions at these locations should be
monitored in the future to determine if this condition changes.
PARKING INVENTORY AND ANALYSIS
An inventory of on-street parking available in the Douglas downtown area was conducted on
October 25 and 26, 2005. The purpose of this inventory was to examine parking issues and
availability in the downtown commercial district. The following data were collected on 10th
Street, from E Avenue to Pan American Avenue, on F Avenue from 7th Street to 12th Street, and
on G Avenue, from 7th Street to 14th Street:
• The number of marked on-street spaces on each side of the street by block.
• The number of designated handicapped spaces on each side of the street by block.
• The type of parking, either angle or parallel.
• The posted time limit and/or the time period of parking restrictions on each side of the
street by block.
Details of the parking inventory by street are provided in Working Paper #1. The following
observations can be made from the on-street parking inventory:
• Every available space on the streets inventoried is used for parking.
• Total spaces = 405
o Handicapped Spaces = 17
o Loading only = 3
o General use = 385
• Parking time limit:
o 165 spaces have no parking duration limit.
o 196 have a 2-hour limit.
o 12 have a 30-minute limit.
o 12 have a 10-minute limit.
o 3 are designated as loading only.
2-20
• Not all of the handicapped spaces are located immediately adjacent to handicapped
ramps leading to the sidewalk. Several of these spaces are mid-block and a
handicapped person incapable of mounting the curb would have to travel some distance
in the street in order to reach a ramp. These spaces are not ADA compliant. All on
street handicapped parking spaces should be located immediately adjacent to curb
ramps.
• Angle and parallel parking:
o 260 angle parking spaces.
o 131 parallel parking spaces.
o 14 90-degree angle spaces.
• The presence of the angle parking restricts cross-street sight distance at stop-controlled
intersections in the downtown area. This phenomenon is illustrated in the photograph in
Exhibit 2-18. Angle parking also restricts motorists’ view of pedestrians attempting to
cross the street, and it creates a crash hazard with vehicles attempting to back out of
these spaces into traffic. The angle parking does provide a buffer between the sidewalk
area and the street.
• High curbs, designed for storm water runoff, in some areas would make conversion of
angle parking to parallel parking difficult, as some of the spaces would be unusable from
the passenger side of an automobile.
• Existing parking availability and demand did not appear to be an issue during the time of
the inventory, but the City of Douglas should conduct a parking utilization study during
the highest seasonal demand periods to determine if additional downtown parking space
is needed.
An additional inventory of City of Douglas owned off-street parking, privately owned off-street
parking, and privately owned land that is currently vacant that could be converted to off-street
parking was also conducted. The locations of the inventoried sites are provided graphically in
Exhibit 2-19 along with an estimate of the number of potential parking spaces.
The off-street parking inventory suggests the following:
• There are approximately 361 potential off-street spaces representing a significant
potential for available parking.
• The largest single facility is located adjacent to 11th Street between G Avenue and Pan
American Avenue on the south side of the street. This facility is currently used for
parking, it is privately owned, and was estimated to have room for approximately 100
spaces.
• There is a potential for this off-street parking to be used to replace on-street parking, if a
decision was ever made to eliminate some on-street parking by converting angle parking
to parallel parking the downtown area.
2-21
Exhibit 2-18
PHOTOGRAPH OF ANGLE PARKING
RESTRICTING CROSS-STREET SIGHT DISTANCE
G Ave at 8th Street looking north. Angle parking blocking cross-street sight lines
2-22
Exhibit 2-19
LOCATIONS OF POTENTIAL OFF-STREET PARKING
CRASH ANALYSIS
The City of Douglas identified six intersections that were considered locations of concern with
regards to crash history. The City of Douglas Police Department provided hard copies of the
crash reports at each intersection for the years 2003, 2004, and 2005 (through September
2005). The six intersections are:
• 14th Street at G Avenue
• 16th Street (SR 80) at Pan American Avenue
• 9th Street at Pan American Avenue
• 5th Street at Pan American Avenue
• 10th Street at A Avenue
• 11th Street at A Avenue
2-23
The crash reports were reviewed in detail and summary information was tabulated
for each intersection and included in a collision diagram for each intersection. These
details are contained in Working Paper #1. A field review of each location was
conducted by the project team with the City of Douglas Project Manager on October
25, 2005. A summary of the crash analysis for each intersection is provided below.
14th Street at G Avenue
This is a traffic signal-controlled, and illuminated intersection with a total of eight crashes at this
location. None of these crashes resulted in a fatality. Four of these crashes were angle
collisions involving a vehicle running the red light. This represents a rather high percentage of
collisions with vehicles failing to stop for the red light. In each case the vehicle that failed to
stop was traveling northbound on G Avenue. A photograph of the northbound approach to this
intersection is provided in Exhibit 2-20. The field review did not suggest any particular sight
restrictions on the northbound approach to this intersection that might be contributing to the
situation of vehicles running the red light.
The existing traffic signal at this location has a single signal head suspended over the
northbound and southbound approaches, with a second signal head mounted on the signal pole
behind the curb. The northbound and southbound approaches each have two through lanes
with an exclusive left-turn lane. It may be possible to reduce the number of collisions involving
vehicles running the red light through the use of a new traffic signal design incorporating an
additional traffic signal heads suspended over the northbound and southbound traffic lanes.
A view of the southbound approach to this intersection is provided in Exhibit 2-21. Although
there is nothing in the crash history to suggest the presence of any issues on this approach, the
field review suggested two proactive measures for this approach. As shown in Exhibit 2-22, the
presence of the traffic signal at 14th Street and G Avenue is obscured by landscaping as the
roadway curves to the south to become G Avenue. An advanced traffic signal warning sign
should be considered for placement on this approach. In addition, a 25 mph speed limit sign
should be placed on this curve as the roadway is transitioning from SR 80 to G Avenue in this
area.
2-24
Exhibit 2-20
G AVENUE AT 14TH STREET LOOKING NORTH ALONG G AVENUE
Exhibit 2-21
TRANSITIONING FROM SR 80 TO G AVENUE,
LOOKING SOUTHEAST TOWARDS 14TH STREET
2-25
16th Street (SR 80) at Pan American Avenue
This is a traffic signal controlled intersection with a total of 13 crashes at this location, none of
which were fatal. To the west, 16th Street is SR 80 and to the east it turns south and transitions
to G Avenue. The northbound, southbound and eastbound approaches to this intersection have
two through lanes, and exclusive right-turn lane and an exclusive left-turn lane. The westbound
approach has two through lanes and an exclusive left-turn lane. The intersection is illuminated.
Two of the 13 crashes were angle crashes that involved a motorist running the red light. In both
cases the motorist that failed to stop for the red light was traveling southbound on Pan American
Avenue. Four of these crashes involved motorists attempting to make a left-turn from Pan
American Avenue being struck by opposing through traffic.
There were two crashes involving pedestrians at this location. One pedestrian crash resulted
when a pedestrian crossing Pan American Avenue eastbound was struck by an eastbound
motorist making a left-turn to northbound Pan American Avenue. The other pedestrian crash
occurred when a southbound motorist struck a person riding a skateboard in the street. Both of
these crashes occurred at night.
There is nothing in the crash history or the field review indicating any particular problems at this
location. The crash history is typical of that for a major signalized intersection.
9th Street at Pan American Avenue
This is a simple stop controlled intersection with 9th Street traffic stopping for Pan American
Avenue. On the west leg of the intersection, 9th Street is a narrow two-lane roadway serving
several warehouses to the west. There were a total of nine crashes at this location, three of
them angle crashes. None of the crashes at this location were fatal. Two of the crashes
involved injuries. Two of the crashes involved bicyclists, one of which was an injury crash.
There is nothing in the crash history suggesting any particular problems at this location.
However, the field review revealed a significant traffic operations problem involving the narrow
west leg of the intersection. Exhibit 2-22 is a photograph showing the west leg of this
intersection. Large trucks on Pan American Avenue have a difficult time entering the west leg of
this intersection to access the warehouses to the west. This is especially problematic for
southbound trucks attempting to turn right onto westbound 9th Street. This maneuver is nearly
impossible to perform for large trucks without encroaching on the eastbound lane of 9th Street.
If a vehicle is waiting at the stop sign on the eastbound approach when a truck approaches the
intersection on Pan American Avenue to turn onto westbound 9th Street, the truck must wait until
the vehicle on 9th Street leaves the intersection. To solve this problem, the westbound exit leg
of the intersection should be widened to accommodate an additional westbound lane. This
improvement would require relocating the utility pole and the natural gas lines located in the
northwest quadrant of the intersection (see Exhibit 2-23). Large trucks also have a difficult time
turning right from eastbound 9th Street to southbound Pan American Avenue without
encroaching on the eastbound left-turn lane. This problem could be solved by widening the
eastbound, 9th Street approach to this intersection.
2-26
Exhibit 2-22
VIEW OF THE WEST LEG OF THE 9TH STREET /
PAN AMERICAN AVENUE INTERSECTION LOOKING EAST
5th Street at Pan American Avenue
This is a traffic signal controlled intersection, where a total of twelve crashes were reported.
None of these crashes were fatal, and only one involved an injury.
There is nothing in the crash history suggesting any safety problems at this location. The field
review did reveal a minor situation that should be changed. The west leg of this intersection
serves as the entrance and exit to the new Wal-Mart shopping center located west of the
intersection. The eastbound approach to the intersection (see Exhibit 2-23) provides an
exclusive left-turn lane, a single through lane, and an exclusive right-turn lane. As shown in
Exhibit 2-23, the eastbound approach does not have any pavement markings or signing
indicating the lane use on the approach.
2-27
Exhibit 2-23
VIEW OF THE 5TH STREET / PAN AMERICAN AVENUE
INTERSECTION EASTBOUND APPROACH, LOOKING EAST
10th Street at A Avenue
This is a traffic signal controlled intersection with eleven reported crashes. None of these
crashes involved a fatality. Four of these crashes resulted from a motorist running the red light.
The two angle crashes involved a motorist running the red light, the crash on September 16,
2004, involved a motorist running the red light while attempting to make a left-turn, and the
crash on July 30, 2004 also occurred when a motorist ran the red light while attempting to make
a left turn. One of the red light running crashes resulted in an injury. Four of these crashes
were rear-end collisions. One crash involved a pedestrian being hit while legally in the
crosswalk by a motorist turning left at the intersection. This pedestrian accident was not
indicated to have resulted in an injury.
Neither the crash history nor the field review suggests any particular problems at this location.
However, there are some conditions that are less than ideal. On-street parking is allowed on
the northbound approach and the northbound departure leg of intersection (see Exhibit 2-24) up
to a point very close to the intersection. On the northbound departure leg of the intersection this
parking serves the adjacent houses. It may be desirable to move the curb to the east on the
northbound departure leg to provide a cut out parking area for two or three vehicles. There are
driveways to the gas station/mini-mart on the southbound approach and the westbound
departure leg of the intersection that are too close to the intersection (see Exhibit 2-25). It is
recommended that these driveways be closed as there are other driveways on each leg of the
intersection serving this business.
2-28
Exhibit 2-24
VIEW OF 10TH STREET AND A AVENUE INTERSECTION LOOKING
NORTH SHOWING ON-STREET PARKING NEAR THE INTERSECTION
2-29
Exhibit 2-25
VIEWS OF 10TH STREET AND A AVENUE INTERSECTION SHOWING
DRIVEWAY ACCESS TO ADJACENT GAS STATION/MINI–MART
Westbound departure leg.
Southbound approach.
2-30
11th Street at A Avenue
This is a simple stop-controlled intersection with 11th Street traffic stopping for A Avenue. There
were seven reported crashes at this location, five of which involved vehicles on 11th Street
failing to stop at the stop sign. Although the overall number of crashes at this location is not
particularly high, the fact that 71 percent of these crashes have a common element of motorists
failing to stop for the stop sign is a concern.
The field review did not identify any specific problems at this location. However, east and west
of this location, 11th Street is the through street, with cross traffic stopping for 11th Street. It may
be that the stop on 11th Street at A Avenue is somewhat unexpected. There are traffic control
measures that can be implemented that may reduce the number of motorists failing to stop at
this location. These traffic control measures include the following:
• Place advance stop ahead warning signs on the eastbound and westbound 11th Street
approaches, and use larger stop signs at this location.
• Use a Warning Beacon as a supplemental emphasis to the stop signs.
• Use an Intersection Control Beacon in addition to the stop signs on 11th Street.
In addition to the traffic control measures identified above, parking on each side of A Avenue
should be prohibited at the intersection to maintain adequate cross-corner sight distance on all
approaches.
AREAS OF SIGNIFICANT PEDESTRIAN ACTIVITY
The scope of this study did not include provisions to conduct a survey or analysis of pedestrian
or bicycle commuting patterns within the study area. Information on areas of pedestrian activity
was gathered from City staff, POE statistics provided by US Customs, and from a brief field
reconnaissance and observation.
There are three primary locations within the study area that have significant pedestrian activity.
These locations are:
• The Port of Entry and the area extending from the POE north along Pan American
Avenue.
• The Douglas downtown area and shopping district, extending from approximately 8th
Street on the south to 15th Street on the north, and from Pan American Avenue on the
west to F Avenue on the east.
• The area along 15th Street from approximately A Avenue on the west to Washington
Avenue on the east. This is an area containing a high school, a junior high school, a
charter school, and an elementary school. City of Douglas staff indicated that this area
along 15th Street lacked adequate sidewalks, curbs and gutter, and required drainage
improvements, particularly around the 15th Street/San Antonio intersection.
Port of Entry Area
Typically, between 2,000 and 2,500 pedestrians per day enter the US through the Douglas
POE. In recognition of this high pedestrian volume, the City of Douglas has provided a
pedestrian rest area just north of the POE on Pan American Avenue in a small city owned park
that includes drinking fountains, benches, and rest rooms. Pedestrians typically use an
unimproved pathway to move east from the City Park through Speer Park at H Avenue and 3rd
Street to access the downtown shopping district.
2-31
The City of Douglas has also provided a shared-use path for pedestrians and bicyclists which
extends from the 3rd Street north to 14th Street on the west side of Pan American Avenue. A
new shopping district has been developed west of Pan American Avenue along 5th Street in the
Wal-Mart shopping area. The Wal-Mart store and the area surrounding the Wal-Mart are
connected to the shared-use path by a sidewalk along 3rd Street and a sidewalk between 3rd
Street and 5th Street. The shared-use path does not extend south of 3rd Street to the Port of
Entry.
The improvements that the City of Douglas has already made near the Port of Entry have
provided the characteristics of a gateway into the city from across the border. City staff has
indicated a desire to continue the development of the POE area as a gateway to the city.
The Downtown Area
The Douglas downtown area and shopping district attracts significant pedestrian activity to the
many shops and restaurants. The downtown area is generally well suited for pedestrian activity,
providing wide sidewalks, shade trees, and angle parking that provides a buffer from traffic.
Exhibit 2-26 is a photograph showing typical pedestrian features in downtown Douglas. As
noted earlier in this report, the angle parking does create a barrier to cross street site lines, and
this is true for motorists and pedestrians. As it is, pedestrians must step into the street to see
around the parked cars. This can be remedied by providing curb extensions at the corners of
the streets with angle parking, as illustrated in Exhibit 2-27, which is a photograph of downtown
Tucson, Arizona along Congress Street showing angle parking and curb extensions. The curb
extensions provide pedestrians a protected area to stand and view the cross street and they
shorten the crossing distance. Pedestrians standing on the curb extensions waiting to cross are
also more visible to motorists on the cross street. The curb extensions can also provide a
decorative treatment to the streetscape.
Exhibit 2-26
VIEW OF G AVENUE LOOKING SOUTH FROM 10TH STREET
2-32
Exhibit 2-27
VIEW OF CURB EXTENSION WITH ANGLE PARKING
IN DOWNTOWN TUCSON, ARIZONA
Exhibit 2-28
PLAN VIEW ILLUSTRATION OF ANGLE PARKING WITH CURB EXTENSIONS
2-33
15th Street Area
The area along 15th Street between A Avenue and Washington Avenue has significant
pedestrian activity primarily associated with the schools in this area. Douglas High School is
located north of 15th Street at Florida Avenue, Paul H. Huber Junior High School is located north
of 15th Street at Washington Avenue, A Avenue Elementary School is located at on the
northeast corner of 15th Street and A Avenue, the Omega Alpha Academy School (a K-10
charter school) is located just south of 15th Street on San Antonio Avenue, and the Center for
Academic Success, the #3 School is also located just south of 15th Street on San Antonio
Avenue. This creates significant pedestrian activity both along and crossing 15th Street in this
area. Discussions with City staff and a field review revealed the following pedestrian related
issues in this area:
• No sidewalk between Florida and San Antonio Avenues on the south side of 15th Street.
• The asphalt sidewalk on the north side of 15th Street between Cochise Drive and
Washington Avenue is in poor condition.
• The sidewalk on the south side of 15th Street between San Antonio and Washington
Avenues is narrow and immediately adjacent to the roadway.
• There are no sidewalks along Louis Avenue between of 15th and 19th Streets connecting
to the schools north of 15th Street. In addition, the striping of a center left-turn lane on
Louis between 15th and 19th Streets would help reduce traffic conflicts through this area
resulting from school related traffic.
• There are drainage issues along 15th Street associated with the lack of curb and gutter in
this area.
• A new access to the charter school parking lot on the south side of 15th Street between
Florida and San Antonio Avenues would help improve traffic circulation and reduce
traffic conflicts associated with school related traffic.
Curbing and Sidewalk Master Plan
The City of Douglas has adopted and implemented a Curbing and Sidewalk Master Plan which
allocates $1.3 million for improvements. This plan provides a $20,000 yearly allocation for
improvements.
AREAS OF SIGNIFICANT BICYCLE ACTIVITY
There were only very limited bicycle count data available for this study, and there was no
significant bicycle activity noted during the field review conducted during October 2005. ADOT
provided 24-hour bicycle count data collected in November 2002 at two locations within the
study area:
• SR 80 east of US 191: 22 bicycles eastbound, 16 bicycles westbound.
• US 191 south of Pirtleville: 7 bicycles northbound, 9 bicycles southbound.
The compact size of the City of Douglas, the relative close proximity of residential areas to the
downtown and the schools located along 15th Street, and the low traffic volumes and lower
speeds on most of the areas streets, would make the City a reasonably good place for bicycling.
However, many of the City’s arterial and collector streets are relatively narrow, have no
designated bicycle facilities, and allow on-street parking, all of which tends to discourage
bicycling. The shared-use path along the west side of Pan American Avenue from the POE to
14th Street is a notable bicycle feature provided by the City.
2-34
The City does not have an adopted bicycle system plan. The City should develop and adopt a
bicycle route plan and implement that plan to provide a continuous bicycle route system to
interconnect all of the City activity centers. The development of the bicycle route plan should
contain a bicycle route system analysis, identify preferred bicycle routes, provide the City with
design guidelines and typical cross-sections for various elements of the bicycle route system,
provide recommended policies for system implementation, and a prioritized list of projects and
time frame for project implementation.
3-1
3. EXISTING TRANSIT CONDITIONS
This section describes existing transit service conditions in the Douglas area. First, the existing
transit characteristics are presented including the current demographic conditions and statistics
on the current mode to work. Next, existing transit service in the City is described. Previous
studies and plans that have addressed transit issues in the Douglas area are then briefly
summarized. A summary of findings is then present on transit needs and actions that have
been recommended by previous studies and plans. Specific strategies for addressing unmet
transit needs in Douglas, as well as mode choice, funding, and equipment issues, will be
described in future working papers.
EXISTING TRANSIT CHARACTERISTICS
Demographics
Exhibit 3-1 illustrates the percentages of the Douglas area’s 2000 population that are more likely
to be transit dependent: minorities, seniors, persons living below poverty, and mobility-limited
persons. As shown in the exhibit, three of the four transit dependent percentages are above the
statewide average.
Exhibit 3-1
STATEWIDE AND DOUGLAS AREA PERCENTAGES
OF POPULATION MORE LIKELY TO BE TRANSIT-DEPENDENT
Source: Census 2000
*Includes Pirtleville CDP
3-2
Exhibit 3-1 is based on the Census survey of Douglas and Pirtleville residents only, and does
not reflect the large numbers of persons from Agua Prieta, Sonora, Mexico who visit the City
daily for shopping and other purposes. Many of these persons cross the border as pedestrians
and are also potentially dependent on transit services for conducting their business in Douglas.
Current Mode to Work
Although the Douglas area currently has a high percentage of transit dependent persons, the
percentage of persons in the area who use public transit to commute to work is below the
statewide average (see Exhibit 3-2). This is due to the current limited transit service in the area.
Exhibit 3-2
MEANS OF TRANSPORTATION TO WORK
BY PERSONS NOT DRIVING ALONE
Source: Census 2000
Over 70 percent of workers aged 16 and over drive alone to work in the Douglas area. The
percentage of persons using public transportation in Douglas is well below that of the statewide
average of approximately two percent. However, the percentage of persons in the City who
carpool to work is significantly higher than the statewide average. The increased carpooling
and working at home in Douglas may be indicators of a latent demand for transit services.
EXISTING TRANSIT SERVICES
Existing transit services are provided by four bus or van operators and two taxicab operators.
Regional service is provided between Douglas and Bisbee, Sierra Vista, Tombstone, Benson,
Tucson, and Phoenix, as well as between Agua Prieta and cities in northwestern Mexico. Both
dial-a-ride and taxicab services are available locally within the Douglas area. Summaries of
each of these services follow:
*Includes Pirtleville CDP
3-3
Douglas Shuttle
The privately owned Douglas Shuttle
was established in 1992 and currently
operates a fleet of eight vans between
Douglas, Tucson, and Phoenix. Six
trips per day are operated in each
direction, spaced evenly throughout
the day. The first trip leaves Douglas
at 7:00 AM and the last trip leaves
Douglas at 6:00 PM. The first trip
leaves Phoenix at 7:15 AM and the
last trip leaves Phoenix at 7:00 PM.
The one-way adult fares are $25
between Douglas and Tucson and
$35 between Douglas and Phoenix.
The shuttle also makes stops in
Tombstone and Benson and will pick-up or drop off passengers in Casa Grande if prior
arrangements have been made. The Douglas Shuttle maintains its own offices in the Douglas,
Tucson, and Phoenix downtown areas and does not serve the airports in either Tucson or
Phoenix, or connect with Greyhound or other carriers. However, the shuttle’s Benson stop is a
service station that is within walking distance of the Amtrak and Greyhound stops in that city.
Food City – Port of Entry Shuttle
The Food City Market operates a free shuttle service seven days a week between the Market
and the Mexico Port of Entry using a minibus. The minibus makes three round trips each hour
between 8:00 am and 6:00 pm. The service is operated as a means of facilitating the patronage
of the Market by pedestrians entering Douglas from Agua Prieta, Sonora, via the Port.
Catholic Community Services
Catholic Community Services has been providing transportation and other services to the
elderly and physically disabled for over 20 years in Cochise County. The services are provided
with the assistance of various federal, state, and local funding sources including FTA Section
5310 and 5311 funding. Three of the operations serve the Douglas area; Douglas Rides, the
Cochise Commuter and the Dial-a-Ride, which are summarized below. Catholic Community
Services also operates the Bisbee Bus, a local area circulator in the Bisbee area.
Douglas Rides
In December 2006 Catholic Community Services began providing a local circulator transit
service along three fixed loop routes within the Douglas area, called Douglas Rides. The three
routes can be generally described as follows:
• Bay Acres Route: serving the Bay Acres area and the northern portion of the City east of
Pan American Avenue.
• Midtown Route: connects the downtown area with the central portion of the City,
extending east to Van Buren Avenue.
• Pirtleville Route: serves the Pirtleville area, and the neighborhoods and activity centers
west of Pan American Avenue and north of SR 80.
—Lima & Associates photo
3-4
The three loop routes have a common transfer point near City Hall at 11th Street and H Avenue.
Each route also extends to the Port of Entry and loops through the new Wal-Mart shopping area
west of Pan American Avenue along 5th Street. This new service operates from 7:00 AM to 6:00
PM. This service was just beginning at the time this study was being completed. A total of 326
passengers were carried in December 2006, and over 400 were carried during the first three
weeks of January 2007. This service is funded in part through the FTA Section 5311 Program
administered by ADOT.
Cochise Commuter
The Cochise Commuter is a service for the general public that was established in 2003 as a
three-year demonstration regional transit project with a grant from HUD that ended in December
2005. Cochise Commuter vans operate three times a day in each direction between Douglas,
Bisbee, and Sierra Vista. Twice-daily service is provided on Saturdays. Schedules are timed to
facilitate usage by Sierra Vista and Bisbee residents commuting to work in Douglas, as well as
by Douglas and Bisbee residents commuting to work in Sierra Vista. The system also serves
Cochise College and receives significant patronage by students.
Cochise Commuter ridership is growing dramatically. During the entire 2004-2005 fiscal year,
the service carried 2,482 persons. However, during the first four months of the 2005-2006 fiscal
year, the Cochise Commuter has already carried 2,398 riders. By comparison, during the same
four months in the previous year, the service had carried just 710 persons. Catholic Community
Services currently receives FTA Section 5311 funding assistance for the Cochise Commuter
operation.
Dial-a-Ride
The Dial-a-Ride operates Monday through Friday between 9:30 AM and 2:30 PM using an
accessible Dodge van. Service is available to the general public, and typical trips include
shopping trips, doctor appointments, and medical prescription pick-ups. Monthly dial-a-ride
ridership averages between 450 and 500 trips. Nutrition and transportation services to seniors
are provided through Title III B funding under contract with SEAGO. The Dial-a-Ride operation
is a recipient of FTA Section 5310 funding administered by ADOT; fares and client donations
are also collected to support the Dial-a-Ride operation.
Every other week, service to and from Douglas is provided for elderly and disabled clients in the
Elfrida area for grocery shopping, nutrition services and doctor appointments. The service is
provided on a voluntary donation basis.
Douglas ARC
The Douglas ARC is a non-profit organization established in 1958 to provide transportation and
other services to developmentally disabled persons and other mobility-limited individuals. The
agency is a recipient of FTA Section 5310 funding and currently operates a fleet of seven vans.
Transportation for employment, medical, or rehabilitation purposes is provided to a client base
of approximately 150 persons. The vehicles are also used to deliver meals to an additional 150
homebound seniors under the “Meals on Wheels” program.
LOCAL TAXICAB OPERATORS
Taxi service is provided by two taxicab operators in Douglas: Anaya Taxi and Quijada Taxi.
Anaya Taxi operates one vehicle within the Douglas area only. Quijada Taxi operates two cabs
within the Douglas area but will also provide service to Tucson or Phoenix upon request.
3-5
AUTOTRANSPORTES TUFESA
Autotransportes TUFESA is a Mexico-based intercity bus company serving the Mexican States
of Sonora and Sinaloa as well as Phoenix and Tucson. The company uses deluxe tour coaches
and maintains a full-service bus depot in Agua Prieta. Service from Agua Prieta is provided to
Culiacan and Hermosillo three times daily and to Ciudad Obregon, Nogales, and Navojoa twice
daily.
PREVIOUS STUDIES AND PLANS
Exhibit 3-3 briefly summarizes the findings of studies and plans that addressed transit issues
within local jurisdictions located in Cochise County. Key recommendations of previous plans
and studies addressing transit issues in Arizona are listed below.
SUMMARY OF FINDINGS
Transit Needs
• Unmet needs for transit service within the Douglas area exist due to the large numbers
of potentially transit-dependent persons living in the area and the high number of
persons who carpool to work.
• A coordinated effort is needed to address the transit needs of Cochise County
communities identified in previous studies.
• No coordination exists among the various regional and intercity transit operations such
as the Douglas Shuttle, the Cochise Commuter, and the I-10 corridor operations such as
Greyhound and Amtrak.
• The Douglas Shuttle does not serve the Tucson or Phoenix airports.
• Autotransportes TUFESA does not share terminals or coordinate schedules with any of
the US-based carriers.
Key Recommendations of Previous Plans and Studies
• Local jurisdictions should designate transit service coordinators to oversee the addition,
expansion, or coordination of transit services within their areas.
• The County and local jurisdictions should identify locations for one or more transit
centers to serve as transfer points among the various providers in the region and to
facilitate the entry of additional operators.
• Locations for future park-and-ride lots should be identified and sufficient space
preserved for their construction.
• The development of public transportation should be encouraged as an alternative to
automobile travel.
• Plan for expanded regional bus service between Douglas and the Phoenix and Tucson
areas.
City of Douglas Transit-Related Issues
• The City of Douglas General Plan does not specifically address transit needs or issues.
• No provision exists for the consideration of transit needs when improving or widening
City streets, including provisions for sidewalks, bus shelters, and bus pull-outs where
curb lane traffic volumes warrant.
3-6
• The geometry of some downtown Douglas streets, including steeper than average cross-slopes
and higher than average curbs, might impede the loading and unloading of transit
vehicles and the use of wheelchair lifts or ramps.
Exhibit 3-3
SUMMARY OF PREVIOUS STUDIES AND PLANS
Title and Source of Plan Date
Summary of Transit-related
Findings and Recommendations
ADOT
Intercity Bus Analysis June
1995
Evaluates intercity bus (ICB) services and needs
throughout the state and provides a summary of the
needs and recommendations for the intercity bus
mode in Arizona.
Local Jurisdictions
City of Douglas General
Plan
June
2002
Goals include the provision of an integrated
multimodal transportation system offering choices
among modes and a balance of facilities and
services by mode. Transit is not emphasized.
City of Douglas Housing
Plan
June
2002
Provides information regarding the residential
building stock and demographics in different areas
of the City that will be used in evaluating potential
future transit corridors and service areas.
Douglas/Agua Prieta Port
Efficiency Study
September
2000
Examines options for improving the traffic flow and
other efficiency measures regarding the US/Mexico
Port of Entry. Suggests new facility placement and
pedestrian concepts that would impact future transit
service in the area.
Three Year Transit Plan
for the Bisbee Bus
December
2001
Proposes Inter-community service linking Douglas
and Bisbee with Sierra Vista. The 6-days-per-week
service would be funded with a combination of LTAF
II and TANF funds, together with farebox revenues.
Would be operated by Catholic Community
Services.
Three Year Transit Plan
for Sunsites
Transportation
December
2001
Non-profit service to transit dependent persons in
the retirement community of Sunsites provides
service to Douglas on alternate Tuesdays for
shopping and medical appointments. Document
supports application of service for continued FTA
Section 5311 funding.
Sierra Vista Public Transit
System Three Year
Transit Plan Update
April
1999
Update study of an existing successful urban transit
operation in Cochise county. Recommends
additional service upgrades and extensions.
Document supports application of service for
continued FTA Section 5311 funding.
4-1
4. EXISTING LAND USE DEVELOPMENT,
POPULATION, AND EMPLOYMENT
YEAR 2005 LAND USE DEVELOPMENT
This section provides the baseline land use data used in the preparation of this transportation
plan. These data update the baseline data provided in the City of Douglas General Plan 2003
Data and Analysis volume and were disaggregated to the Transportation Analysis Zone (TAZ)
system developed for this study.
Traffic Analysis Zone System Description
The sketch planning level traffic forecasting model requires population, number of dwelling
units, and employment disaggregated by Transportation Analysis Zone (TAZ) for years 2005
and 2030. A TAZ system was established to spatially represent the current land use and
socioeconomic conditions of the city. This TAZ system encompasses a total area of analysis,
and it is depicted in Exhibit 4-1. A total of 55 TAZs were established for this study. The TAZs
are smaller in areas with higher levels of land use and roadway system development in order to
provide better estimates of future traffic forecasts. In general, the TAZ structure was
established to correspond with the roadway system used in the traffic forecast and analysis.
Procedure for Updating 2000 Census Data to 2005
Year 2005 population and number of dwelling units, for each TAZ are based on year 2000
census data, updated using aerial photographs, building permits, and information provided by
the City, to reflect recent development. These data were also field verified.
The 2005 number of employees for office, retail, and general commercial development per TAZ
is based on a field inventory of commercial properties completed in 2005. Major employer data
per TAZ are based on data provided by Cochise College Center for Economic Research.
School related data such as number of employees and number of students per TAZ are based
on data provided by the Douglas Unified School District Superintendent Office.
The US Bureau of the Census no longer provides inter-census data at the block level for
small non-metropolitan areas such as the City of Douglas. Therefore, a methodology to
estimate population and occupied housing units at the block level was used.
Exhibit 4-1
DOUGLAS SMALL TRANSPORTATION AREA STUDY BOUNDARY AND TAZ STRUCTURE
4-2
4-3
Bureau of the Census housing unit counts report that there were 5,186 housing units in Douglas
and 531 units in Pirtleville in 2000. Based on the new home permits provided in Exhibit 4-2, an
additional 116 new housing units have been built in Douglas between 2000 and 2005.
The total 2005 existing housing stock within the study area based on census counts and
adjusted to reflect number of new home permits processed during the 2000-2005 planning
period, includes 6,431 housing units. As shown in Exhibit 4-2, of these 6,431 housing units,
5,302, or 82 percent are located in the City, or 8 percent are located in Pirtleville area; and 598,
or 10 percent, are located within the portion of Cochise County inside of the study area. No
residential growth has taken place in the Pirtleville area. Therefore, the 116 new home permits
processed by the City are located in Douglas.
Exhibit 4-2
2005 TOTAL NUMBER OF HOUSING UNITS
BASED ON 2000 CENSUS AND NEW HOME
BUILDING PERMITS ISSUED BY THE CITY
Description
Number of
Housing Units Percent
2000 Census Housing Units Douglas 5,186 80
2000 Census Housing Units Pirtleville 531 8
2000 to 2005 Total New Home Building
Permits within City 116 2
Cochise County (within study area) 598 10
Total Number of Housing Units 6,431 100
Sources: 1990 and 2000 Census for Douglas and Pirtleville, US Bureau of the Census;
Building Permits 2000-2005, City of Douglas Staff, 2005; Cochise College Center for
Economic Research, 2005.
2005 POPULATION AND EMPLOYMENT ESTIMATES
According to Cochise College Center for Economic Research, the 2000 population for
Douglas was 16,496 representing an increase of 3,359 people since the 1990 census.
Much of this growth is due to annexation of the Arizona State Prison in 2000, which
increased the City population by 1,936 people, and the 23rd Street annexation, which
increased the City population by another 248 people. The official 2000 Census counts
reports a population of 14,312 for Douglas. This number does not include the two
annexations mentioned above.
Exhibit 4-3 provides 2004 Census estimates and 1990 and 2000 Census counts for
Douglas, Pirtleville, and other major cities in Cochise County. The City of Douglas
experienced slow but consistent growth in the 1990s. Between 1990 and 2000, the
population grew 8.9 percent. In 2001, Douglas ranked 65th among 87 incorporated cities
for population growth between 1998 and 2000. Douglas ranks 28th among Arizona cities
and second among Cochise County cities in terms of population. These growth figures
and rankings are based on the official 2000 Census count.
4-4
Exhibit 4-3
2004 AND 2005 ESTIMATES AND 1990 AND 2000 CENSUS
COUNTS FOR DOUGLAS AND PIRTLEVILLE
Place 1990 2000 2004 2005
Douglas 12,822 16,496 16,706 16,983
Pirtleville 1,364 1,550 1,624 1,643
Sources: 2004 Estimates and 1990 and 2000 Census Counts, US Bureau
of the Census, 2005; Adjusted City of Douglas 2000 counts; Cochise
Center for Economic Research, 2005; 2005 Estimates, The Planning
Center, 2005.
Year 2005 Household Size, Housing Units and Occupied Housing
The average household size is defined as the average number of permanent residents
for each permanently occupied housing unit. The national household size has been
decreasing in the past few decades, and it is expected to continue to decline at a
decreasing rate.
The decline is household size experienced is attributed to changes in life style, declining
birth rates, increasing divorce rates, the tendency for older persons to maintain their own
homes and a trend of young adults forming one- or two-person households.
The US Bureau of the census reported that the City of Douglas average household size
decreased from 3.16 in 1990 to 3.07 in 2000. The same agency reported that
Pirtleville’s average household size decreased from 3.57 in 1990 to 3.41 in 2000.
Exhibit 4-4 provides 2004 and 2005 household size estimates for Douglas and Pirtleville
based on 1990 and 2000 Census.
Exhibit 4-4
HOUSEHOLD SIZE FOR DOUGLAS AND PIRTLEVILLE
Place 1990 2000 2004 2005
Douglas 3.16 3.07 3.03 3.02
Pirtleville 3.57 3.41 3.35 3.33
Sources: 2004 Census Estimates and 1990 and 2000 Census Counts,
US Bureau of the Census; 2005 Estimates, The Planning Center, 2005
The national trend of decreasing household size is evident in Douglas and Pirtleville. It is
anticipated that this trend of decreasing household size will continue throughout the planning
horizon.
For the purpose of traffic modeling, occupied housing is utilized to generate number of vehicle
trips per household. Additional adjustments were required to avoid counting segments of the
population that do not generate trips, such as inmate population. Therefore, the existing 2005
population was derived as a function of occupied housing units at the block level of analysis.
Exhibit 4-5 shows population, housing units, and occupied housing units based on 1990 and
2000 Census and 2005 estimates. Details of population, housing, and occupied housing by
TAZ are provided in Appendix A.
4-5
Exhibit 4-5
STUDY AREA POPULATION, HOUSING UNITS,
AND OCCUPIED HOUSING UNITS
Year
1990 2000 2005
Population 15,741 17,284 17,592
Total Housing 6,294 6,431
Occupied Housing 5,499 5,777
Sources: Census 1990 and 2000 Summary File 1 (SF 1) 100-Percent Data
at Block Level for Douglas, Pirtleville, and Cochise County portion within the
Study Area, American Fact Finder, US Bureau of the Census and Aerial
Flight of Douglas, Arizona, 2000.
Year 2005 Employment Estimates
Exhibit 4-6 provides year 2005 employment estimates by employment category and by major
employers within or near the study area. Retail, office/service, and general commercial
employment estimates for the study area are based on the commercial land use inventory
conducted for this transportation plan. Employment data for major employers were provided by
the Cochise College Center for Economic Research. The employment levels by TAZ are
provided in Appendix A along with the location of the areas major employers. Based on the
data in Exhibit 4-5, approximately 888 employees were employed in the retail, office/service,
and general commercial sectors at the time the commercial inventory was conducted in 2005,
and approximately 3,548 employees were reported employed by major employers. When
adding these two groups, there are approximately 4,436 employees employed by the retail,
office/services, and general commercial sectors within the City of Douglas. Of this total,
approximately, 80 percent are employed by major employers.
Manufacturing and construction employment were not calculated. This project was scoped to
update the population and employment data from information available from the Arizona
Department of Economic Security (DES) or the Census Bureau. Neither of these two agencies
provides data estimates at the block level for non-metropolitan areas or small communities like
the City of Douglas for non-decennial years. In addition, there were no current aerial
photographs for Douglas and the 1990 and 2000 census block delineations were inconsistent.
Therefore, these data could not be estimated under the negotiated scope of work.
SCHOOL ENROLLMENT
Another population group generating traffic trips is the student population. Exhibit 4-7 provides
the total school enrollment for the 11 Douglas Unified School District schools for years 2001
through 2005. The enrollment figures for each school are provided in Appendix A.
4-6
Exhibit 4-6
2005 EMPLOYMENT BY EMPLOYMENT CATEGORY
AND MAJOR EMPLOYER, AND SCHOOL ENROLLMENT
Employment Category/Employer Year 2001 Year 2005
Retail Employees NA 241
Office/Service Employees NA 235
General Commercial Employees NA 412
Subtotal NA 888
Major Employers Within the Study Area
Douglas Unified School District (various schools) 423 405
City of Douglas 250 235
Wal-Mart 224 408
Southeast Arizona Medical Center 141 104
Safeway 136 84
Basha’s/Food City 0 110
Gadsden Hotel 65 70
US Customs/US Immigration 57 39
J.C. Penney 0 46
Subtotal 1,296 1,501
Major Employers Outside the Study Area
US Border Patrol/DHS 1 850 1,046
Cochise Community College 835 327
Arizona State Prison 2 700 674
Subtotal 2,385 2,047
TOTAL 4,436
Sources: City of Douglas Land Field Survey, 2005. Major Employers, Douglas, Arizona, Cochise College
Center for Economic Research, 2005.
1. In 2004, The US Border Patrol merged with DHS (Department of Homeland Security)
2. Regional employer located outside of the Small Area Transportation Study area.
NA = Not Available
4-7
Exhibit 4-7
TOTAL SCHOOL ENROLLMENT FOR
DOUGLAS UNIFIED SCHOOL DISTRICT SCHOOLS
Year
2001 2002 2003 2004 2005
Total Students 4,239 4,095 4,107 3,928 4,237
Source: Douglas Unified School District Superintendent Office, 2005.
HISPANIC POPULATION
As shown in Exhibit A-6 provided in Appendix A, the largest population group within the
City of Douglas is the Hispanic population. According to the 2000 Census of population,
of the total 17,284 people residing within the study area, approximately 12,909, or 75
percent identified as Hispanic. According to 2005 estimates of population, of the total
17,529 people residing within the study area, approximately 13,325, or 76 percent identify
as Hispanic. For comparison, the State of Arizona and Cochise County have a 25
percent and 31 percent Hispanic population, respectively. Details on the number and
percentage of Hispanic population by TAZ are provided in Appendix A.
POPULATION AGE 65 AND OLDER
According to the 2000 Census of population, of the total 17,284 people residing within the
study area, approximately 2,284, or 13 percent were age 65 or older. According to 2005
estimates of population, of the total 17,529 people residing within the study area,
approximately 2,400, or 14 percent were 65 and older. Details on the number of persons
age 65 and older by TAZ are provided in Appendix A.
5-1
5. FUTURE LAND USE AND SOCIO-ECONOMIC DATA
METHODOLOGY
Forecasts were developed for years 2010, 2020, and 2030 for population, employment, housing
units, occupied housing, and school enrollment for the study area. These are the factors that
represent the primary determinants of future travel demand. Land use forecasts were
developed based on the amount of land available for development within the study at the TAZ
level.
The methodology for and details of the development of the future land use and socio-economic
data are presented in Working Paper #1 of this study. The information below provides a
summary of the factors relevant to developing the travel demand forecast for the study area.
LAND USE FORECAST
The land use inventory provided background information relative to the amount of land available
for growth in each TAZ, TAZs with a potential to experience growth, and TAZs that are either
built-out or would probably not experience any new growth. This information is summarized in
the maps provided in Exhibits 5-1 through 5-3.
Exhibit 5-1
TAZs AT OR NEAR BUILDOUT
TAZ at Buildout
TAZ with 4 acres or less of adjusted developable vacant land (near buildout)
5-2
Exhibit 5-2
TAZs EXPERIENCING RESIDENTIAL AND NON-RESIDENTIAL GROWTH
TAZ experiencing non-residential (commercial, industrial, or public services) growth
TAZ experiencing residential growth
5-3
Exhibit 5-3
TAZs EXPECTED TO EXPERIENCE NO GROWTH
TAZ experiencing no growth
TAZ experiencing no growth due to being at buildout in 2000.
5-4
5-5
FORECAST POPULATION, HOUSING UNITS, AND OCCUPIED HOUSING
Exhibit 5-4 provides 2010, 2020, and 2030 population, housing units, and occupied housing
units projections developed for this transportation plan. The forecasts indicate a modest growth
for the Douglas area over the next 24 years. The details of this forecast by TAZ are provided in
Appendix B.
Exhibit 5-4
FORECAST POPULATION, HOUSING UNITS,
AND OCCUPIED HOUSING UNITS
Year
2010 2020 2030
Population 18,091 19,016 19,741
Housing Units 6,739 7,320 7,898
Occupied Housing Units 6,047 6,587 7,118
FORECAST RETAIL, OFFICE/SERVICE, AND GENERAL EMPLOYMENT
The 2010, 2020, and 2030 retail, office/service, and general commercial employment
forecasts are based on percentages of population employed by each of these categories.
These percentages utilize 2005 as the base year and were applied to 2010, 2020, 2030
population projections. Exhibit 5-5 provides retail, office/service, and general commercial
employee forecasts for the study area. The forecasts by individual TAZ are provided in
Appendix B.
Exhibit 5-5
FORECAST RETAIL, OFFICE/SERVICE,
AND GENERAL COMMERCIAL EMPLOYMENT
Employment Category Year
2010 2020 2030
Retail 248 261 270
Office/Service 242 254 264
General Commercial 424 445 462
Totals 914 960 996
FORECAST EMPLOYMENT FOR MAJOR EMPLOYERS
The forecast for major employers was obtained based on the percentage of the total population
employed by each major employer. Year 2005 was used as the base year for these
percentages, which were applied to 2010, 2020, 2030 population projections.
Exhibit 5-6 provides the employment forecasts for major employers for years 2010, 2020, and
2030.
5-6
EXHIBIT 5-6
2010, 2020, AND 2030 EMPLOYMENT BY MAJOR EMPLOYER BY TAZ
TAZ
Number
Major
Employers
Year 2005
Percent
of Total
Population
Year
2010
Year
2020
Year
2030
Outside of Study
Area
US Border Patrol/DHS 1
5.9 1,076 1,131 1,174
Outside of Study
Area
Cochise Community
College 1.9 336 353 367
Outside of Study
Area
Arizona State Prison 2
3.8 693 729 756
See Notes Douglas Unified School
District 3 2.3 416 438 454
51 City of Douglas 1.3 242 254 264
14 Wal-Mart 2.3 420 441 458
4 Southeast Arizona Medical
Center 0.6 107 112 117
37 Safeway 0.5 86 91 94
9 Basha’s/Food City 0.6 113 119 123
51 Gadsden Hotel 0.4 72 76 79
28 US Customs/US
Immigration 4 0.2 40 42 44
37 J.C. Penney 0.3 47 50 52
Total
Employment 3,649 3,835 3,981
Sources: Census 1990 and 2000 Summary File 1 (SF 1) 100-Percent Data at Block Level for Douglas, Pirtleville, and Cochise
County portion within the Study Area, American Fact Finder, US Bureau of the Census 2000 Population Counts and Major
Employers, Douglas, Arizona, Cochise College Center for Economic Research, 2005.
1. In 2004, The US Border Patrol merged with DHS (Department of Homeland Security)
2. Regional employer located outside of the Small Area Transportation Study area.
3. Employer has multiple locations. Number of employees per school and number of students per school by TAZ are provided in
the Exhibits 5-7 and 5-8.
4. In 2004, the US Customs and the US Immigration became the Bureau of Immigration and Customs Enforcement.
5-7
FORECAST SCHOOL EMPLOYMENT AND ENROLLEMENT
The forecast school employment for Douglas Unified School District schools was developed
based on percentages of the school population employed by each school, and the percent of
the total population employed by the school district. Year 2005 percentages were used as the
base year and are applied to 2010, 2020, 2030 population projections.
Exhibit 5-7 provides 2010, 2020, 2030 school district employment by school based on the above
methodology.
Exhibit 5-7
2010, 2020, AND 2030
DOUGLAS UNIFIED SCHOOL DISTRICT EMPLOYMENT BY TAZ
TAZ
Number
School
Name
Percent
of Total
School
Employment
Total
Employees
2010
Total
Employees
2020
Total
Employees
2030
3 Faras Elementary 6 26 27 28
18 Joe Carlson
Elementary 11 44 46 48
24 Douglas High School 25 105 110 114
24 DHS East Campus 1 4 4 4
25 Sarah Marley
Elementary 7 31 32 36
27 Clawson Elementary 9 37 39 40
29 Early Learning Center 6 26 27 28
34 Ray Borane Middle
School 11 45 48 49
41 Paul Huber Middle
School 12 51 54 56
42 Stevenson Elementary 8 35 37 38
42 Maryvale School 3 12 13 13
Total School Employment 416 437 454
Sources: Census 1990 and 2000 Summary File 1 (SF 1) Douglas, Pirtleville, and Cochise County portion, US
Bureau of the Census 2000 Population Counts; Major Employers, Douglas, Arizona, Cochise College Center for
Economic Research, 2005; Douglas Unified School District Office of the Superintendent, 2005.
5-8
The number of students per school for the Douglas Unified School District was obtained based
on the year 2005 ratio of number of students per occupied housing unit, which is 0.73 students
per occupied housing unit. This ratio was applied to the forecast number of occupied housing
units to determine the total number of students for each forecast year. The year 2005
percentage of the total number of students attending each school was used to proportion the
total number of students to each of the existing schools.
Exhibit 5-8 provides the forecast student population by school and TAZ.
Exhibit 5-8
2010, 2020, AND 2030
DOUGLAS UNIFIED SCHOOL DISTRICT STUDENTS BY TAZ
TAZ
Number School Name
Percent of
Population
Total
Students
2010
Total
Students
2020
Total
Students
2030
3 Faras Elementary 6 253 276 298
18 Joe Carlson Elementary 11 477 520 562
24 Douglas High School 27 1,190 1,296 1,400
24 DHS East Campus 1 55 60 65
25 Sarah Marley
Elementary 7 298 325 351
27 Clawson Elementary 10 425 463 500
29 Early Learning Center 6 246 268 289
34 Ray Borane Middle
School 9 419 456 493
41 Paul Huber Middle
School 13 589 641 693
42 Stevenson Elementary 10 430 469 506
42 Maryvale School 1 32 35 38
Total Projected Student Population 4,414 4,808 5,196
Sources: Census 1990 and 2000 Summary File 1 (SF 1) Douglas, Pirtleville, and Cochise County portion, US
Bureau of the Census 2000 Population Counts; Major Employers, Douglas, Arizona, Cochise College Center for
Economic Research, 2005; Douglas Unified School District Office of the Superintendent, 2005
6-1
6. FORECAST FUTURE TRAVEL DEMAND AND
TRAFFIC OPERATIONS ANALYSIS
DAILY TRAFFIC FORECAST METHODOLOGY
A study area sketch planning model was developed for forecasting future traffic volumes,
analyzing future roadway deficiencies, and evaluating alternative improvements. The
demographic data for each of the TAZs for the 2005 base year and for the 2030 horizon year
were used to forecast future traffic. The demographic data included population, number of
dwelling units, and employment data for retail, office, general, major employers, and student
categories. These data were used as the basis for estimating the daily vehicle trips generated
within the study area boundaries.
External sources of traffic that would impact the volume of traffic flowing into, out of, or within
the Douglas area were also identified. These “externals” included Bisbee/Sierra Vista via SR 80
west, Willcox and points north via US 191 north, New Mexico and points east via SR 80 east,
and Agua Prieta and origins or destinations in Mexico via the Port of Entry. Traffic count
information for “externals” served by SR 80 and US 191 was obtained from ADOT and traffic
counts for the Port of Entry were provided by the US Customs Service.
A travel demand model was developed using the base year socioeconomic data and the
existing roadway network. Traffic volumes estimated by the model for the 2005 base year were
calibrated against existing traffic counts. After the model was calibrated for the base year, Year
2030 socioeconomic data were used in generating a forecast for year 2030 daily traffic volumes
on the existing roadway network.
Exhibit 6-1 presents example traffic forecast results from the sketch modeling process. Exhibit
6-2 shows estimated volumes for 2005 and forecasted volumes for year 2030. The sketch
modeling exercise indicates that traffic volumes will grow slowly and steadily throughout much
of the Douglas area between 2005 and 2030. However, volumes are forecast to increase by a
greater percentage in the northeast quadrant of the study area (see Exhibit 6-3) due to
residential development in that area.
Exhibit 6-1 also includes an estimated daily capacity for each of the sample roadway segments
shown. These capacity estimates, in vehicles per day, are taken from the State of Florida, 2002
Quality/Level of Service Handbook, and are generated based on the methods contained in the
Highway Capacity Manual 2000. The reference materials from the Florida document are
provided in Appendix C. The comparison of the daily capacity estimates to the forecast 2030
traffic volumes indicate that, in general, the forecast traffic volumes are well below the estimated
capacities. This indicates that the roadway system in the Douglas area should provide good
level of service and traffic operations for future traffic, and that no new major capacity
improvements are required. A more detailed assessment of the future level service and traffic
operations based on peak-hour traffic volumes is provided below.
Simple linear trend projections, based on the annual traffic data presented in Chapter 2, were
used to estimate future year annual traffic entering the US through the Port of Entry. A
comparison of year 2005 traffic levels to year 2010, 2020, and year 2030 is provided in Exhibit
6-4.
6-2
Exhibit 6-1
ESTIMATED AND FORECAST
EXAMPLE DAILY TRAFFIC VOLUMES
Daily Traffic Counts 1 By Year
Roadway Segment 2005 2010 2020 2030
Estimated Daily
Capacity
(Vehicles per Day)2
Pan American Ave. between 11th Street and 14th Street 9,601 10,395 12,029 13,592 30,600
Highway 80 east of junction with Highway 191 12,570 13,104 14,200 15,232 34,200
Highway 80 east of Leslie Canyon Road 3,041 4,248 6,645 9,023 16,300
G Avenue between 9th Street and 10th Street 1,802 1,833 1,888 1,931 14,600
15th Street between San Antonio and Washington 4,350 4,408 4,874 4,870 12,000
8th Street east of A Avenue 2,375 2,518 2,875 3,166 12,000
Highway 191 north of Highway 80 4,594 4,772 5,156 5,528 16,300
1. Year 2005 estimates from ADOT counts and traffic data from previous studies in the study area. Forecasts for Years 2010, 2020,
and 2030 from Lima & Associates
2. Source: State of Florida, 2002 Quality/Level of Service Handbook, Table 4-2, page 87.
AM AND PM PEAK-HOUR TRAFFIC ANALYSIS AND LEVEL OF SERVICE FOR YEAR 2030
TRAFFIC
Morning and afternoon peak-hour traffic volumes were estimated first for year 2030 based on
the year 2030 daily traffic forecasts. Exhibit 6-3 provides the estimated increase of daily traffic
in percent for year 2030 in comparison to year 2005 daily traffic volumes. The method used to
develop the year 2030 AM and PM peak-hour estimates was to increase the year 2005 peak-hour
approach volumes by the same percentage increase forecast for the daily traffic volumes.
The turn percentages were initially assumed to remain the same as those used in the year 2005
analysis, but they were adjusted in a few cases to better balance traffic flow between adjacent
intersections and reflect a more realistic traffic flow pattern based on traffic operations and level
of service. In addition, traffic volumes were updated based on the traffic data collected at three
locations to conduct traffic signal warrant studies. The resulting AM and PM peak-hour turning
movement volumes used in the year 2030 traffic operations analysis are provided in
Appendix C.
Exhibit 6-2
2005 VOLUMES VS 2030 VOLUMES
6-3
Exhibit 6-3
ESTIMATED PERCENT TRAFFIC GROWTH FROM YEAR 2005 TO YEAR 2030
6-4
6-5
Exhibit 6-4
FORECAST ANNUAL TRAFFIC ENTERING THE U.S.
THROUGH THE PORT OF ENTRY
Year
2005 1 2010 2020 2030
Privately Owned Vehicles 2,098,713 2,243,600 2,503,700 2,763,900
Trucks 28,418 38,700 56,300 75,600
Buses 3,241 6,400 8,500 10,600
Total Vehicular Traffic 2,129,372 2,288,700 2,568,500 2,850,100
Pedestrians 712,435 730,900 833,400 935,800
1. Year 2005 traffic count data provided by the US Customs Service, Tucson, Arizona.
Year 2030 Level of Service Analysis
The year 2030 turning movement volumes and estimates of future truck volumes were used in a
SimTraffic micro-simulation analysis to determine if there were any significant congestion
problems creating traffic back-ups that impacted upstream intersections. This phenomenon was
not present in the simulation, therefore it was decided to use the Synchro analysis of
intersection operations based on the Highway Capacity Manual 2000 procedures.
A summary table of intersection approach level of service for each intersection is provided in the
appendix. Exhibit 6-5 provides a summary of only those intersection approaches with future
congestion issues (LOS E and F) and potential congestion issues (LOS D) during the AM and
PM peak-hours. Intersection approaches with future levels of service A, B, or C are considered
to be operating reasonably well and not in need of any remedial measures to address future
congestion problems. The level of service results for all intersections are included in
Appendix C.
The following locations are indicated to have future year 2030 congestion problems during the
morning peak-hour:
• Northbound approach at the intersection of San Antonio Avenue and 15th Street - LOS F
(capacity), stop controlled. This is worse than the LOS E for the existing condition. A
four-way stop control was tested using Synchro and found to provide a much improved
LOS on the northbound approach with reasonable levels of service on all other
approaches. Although this intersection does not warrant a traffic signal based on
existing traffic volume, this intersection may be a candidate for a future traffic signal.
• Eastbound approach on 9th Street at Pan American Avenue – LOS E (capacity). A small
increase in left-turn or through traffic at this location could result in a deterioration of
operating conditions as traffic increases on Pan American Avenue. The increase in
truck traffic on 9th Street will also contribute to this condition. An option may be to
prohibit through and left-turn movements on the eastbound and westbound approaches.
• Eastbound approach on 14th Street at A Avenue – LOS D (emerging congestion). This
is slightly worse than the existing condition for the eastbound approach, however it is
generally not considered necessary to remedy LOS D conditions in an urbanized area
such as this. Improvements are not considered necessary at this time.
The following locations are indicated to have future year 2030 congestion problems during the
afternoon peak-hour.
6-6
• Eastbound and Westbound approaches of 14th Street at Pan American Avenue – LOS D
(emerging congestion) stop controlled. This is slightly worse than the existing condition
for the eastbound approach and is the same result as indicated for the existing condition
traffic for the westbound approach. However, it is generally not considered necessary to
remedy LOS D conditions in an urbanized area such as this. It is likely that as traffic
volumes increase, westbound traffic will divert to adjacent street traffic signals to turn
southbound on to Pan American Avenue. This is the assumption made in evaluating the
traffic conditions at this location. An option would be to prohibit left-turns on the
eastbound and westbound approaches if congestion becomes an issue in the future, but
improvements are not considered necessary at this time.
• Eastbound and westbound approaches of 9th Street at Pan American Avenue – LOS E
(capacity), stop controlled. A small increase in left-turn or through traffic on these
approaches could result in a deterioration of operating conditions as traffic increases on
Pan American Avenue. It is likely that westbound 9th Street traffic will divert to the 10th
Street traffic signal if congestion becomes a problem. An increase in truck traffic on 9th
Street may also contribute to this condition. An option may be to prohibit through and
left-turn movements on the eastbound and westbound approaches.
Exhibit 6-5
ESTIMATED YEAR 2030 LEVELS OF SERVICE
6-7
7-1
7. FUTURE MULTIMODAL CONDITIONS
FUTURE PUBLIC TRANSPORTATION CONDITIONS
Within any urban area, the origin and destination of most trips—and of the percentage of trips
that will be made by use of public transportation—is related to where residents of the area live
and where they work. Concentrations of population within an area suggest where commute
trips are likely to originate during the morning peak travel period, and concentrations of
employment function as “attractors” where such trips are likely to terminate. In the afternoon,
the roles are reversed: Trips originate in areas where employment is concentrated and
terminate in residential areas.
The densities per square mile of these residential and employment areas has been empirically
determined to indicate the appropriate mode, or modes, of public transportation that should be
considered for these areas. These density threshold numbers have been used in a number of
transit studies nationwide including the High Capacity Transit Study conducted in 2003 for the
Maricopa Association of Governments and are shown in Exhibit 7-1 below.
Exhibit 7-1
MINIMUM CONSOLIDATED RESIDENTIAL AND
EMPLOYMENT DENSITIES FOR VARIOUS
TYPES OF TRANSIT SERVICES
Transit Service Type Persons/Sq Mile 1
Bus–minimum service 4,500
Bus–intermediate service 7,780
Light rail or Bus Rapid Transit 10,000
1. Calculated from Maricopa Association of Governments High Capacity
Transit Study, 2003
Bus minimum service = 1/2 mi between routes, 20 buses/day
Bus intermediate service = 1/2 mi between routes, 40 buses/day
In order to analyze the concentrations of population (residential areas) and employment in
Douglas, the 2005 population and employment levels were plotted by traffic analysis zone (TAZ)
as shown in Exhibit 7-2. Note that each TAZ in Exhibit 7-2 reflects the sum of the population
and employment within that TAZ. For example, for a TAZ with a population of 1,200 and
employment of 800, a value of 2,000 was used. Exhibit 7-3 depicts the forecasted population
and employment levels plotted by traffic analysis zone for 2030.
The value ranges for the “Persons per Square Mile” shown in Exhibit 7-2 and 7-3 were
intentionally chosen to coincide with density thresholds for implementing various types of transit
services as shown in Exhibit 7-1.
Draft 1-27-06
N
Highway 80
Highway 191
Leslie Canyon Rd
Highway 80
Grace Ave
Sulphur Spring St
Douglas Ave
Washington Ave
Pan American Ave
10th St
15th St
19th St
8th St
5th St
3rd St
1st St
5th St
9th St
11th St
14th St
A Ave
Chino Rd
0 0.5 1 Miles
City Limits
1 - 3,500
3,501 - 4,500
4,501 - 7,780
7,781 - 10,000
10,001 And Above
0
Streets
Core Transit Service Area
Exhibit 7-2
2005 COMBINED POPULATION AND EMPLOYMENT DENSITY PER SQUARE MILE BY TAZ
7-2
Draft 1-27-06
N
Highway 80
Highway 191
Leslie Canyon Rd
Highway 80
Grace Ave
Sulphur Spring St
Douglas Ave
Washington Ave
Pan American Ave
10th St
15th St
19th St
8th St
5th St
3rd St
1st St
5th St
9th St
11th St
14th St
A Ave
Chino Rd
0 0.5 1 Miles
City Limits
1 - 3,500
3,501 - 4,500
4,501 - 7,780
7,781 - 10,000
10,001 And Above
0
Streets
Core Transit Service Area
Exhibit 7-3
2030 COMBINED POPULATION AND EMPLOYMENT DENSITY PER SQUARE MILE BY TAZ
7-3
7-4
Unlike many other Arizona communities, the Douglas area is not forecast to grow dramatically
between 2005 and 2030. However, as Exhibit 7-2 shows, a core area of the City already has
the combined population and employment density necessary to justify the implementation of
intermediate level bus service. As noted previously, an above average percentage of persons
in the Douglas area carpool, possibly indicating a latent demand for transit service.
A comparison of Exhibits 7-2 and 7-3 shows that portions of Douglas north and east of the
downtown area are actually forecast to become less densely populated between 2005 and 2030
because the number of persons per dwelling unit is projected to decrease. At the same time,
the population in the core area is becoming slightly denser. In 2030, a residential area north of
Highway 80 currently being developed is forecast to have sufficient population density to
support bus transit.
Downtown Douglas is not only the core area of a small city, but is also a principal activity center
of a metropolitan area including Douglas itself, as well as the significantly larger city of Agua
Prieta, Sonora. At the time of a 1995 census, Agua Prieta had a population of 56,228.
However, anecdotal evidence suggests that the Sonoran city has experienced explosive
population growth during the 1995 – 2005 time frame. A conservative estimate is that the
Douglas – Agua Prieta metropolitan area has a 2006 population of 100,000 or more. If the
entire population of the region lived on the Arizona side of the border, it would be declared a
Metropolitan Planning Area, and a metropolitan planning organization would be established to
address the area’s transportation and transit needs.
Between 150,000 and 200,000 privately owned vehicles pass through the Douglas Port of Entry
(POE) every month, together with more than 56,000 pedestrians. Exhibit 7-4 shows the monthly
fluctuations in these numbers between October 2002 and April 2005. Both private vehicle and
pedestrian volumes peaked in May 2003.
Exhibit 7-4
MONTHLY FLUCTUATIONS IN THE MOTOR VEHICLE AND
PEDESTRIAN TRAFFIC AT THE PORT OF ENTRY
Source: Customs & Border Protection Regional Mission Support Officer in Arizona,
obtained from ASCG, Inc.
7-5
TYPES OF TRANSIT VEHICLES AND SERVICES
The types of transit service that may be in operation in Douglas by 2030 include dial-a-ride and
paratransit services, deviated fixed route local circulators, possible fixed-route bus service, and
expanded regional commuter service. Definitions of these types of service are provided in
Exhibit 7-5 and vehicles typically used for these services are shown in Exhibit 7-6.
Exhibit 7-5
TRANSIT SERVICE TYPE DEFINITIONS
Dial-a-Ride Service: A demand-response service. Vehicles do not operate on a fixed route or schedule, but pick-up
patrons at their origins and deliver them directly to their destinations. Before a trip begins, and during the course of a
trip, the driver receives information from a dispatcher concerning pick-up and drop-off requests. A modification of this
type of service, known as Reserve-a-Ride, functions like Dial-a-Ride except that pick-up requests are required to be
made 24-hours in advance.
The dispatcher and driver decide the most efficient order in which to make stops. Such a procedure often means
that, after being picked up, a passenger must remain on board while “detours” are made to pick up or drop off other
passengers. Hence, a dial-a-ride trip can take significantly longer to complete than if the passenger had been able to
drive directly to his or her destination, and such service appeals primarily to transit-dependent persons.
Paratransit: A complementary dial-a-ride service provided to seniors or disabled persons in a fixed-route service
area as required by a provision of the Americans with Disabilities Act.
Deviated Fixed Route Service: Sometimes referred to as “checkpoint” service, is considered an intermediate step
between dial-a-ride, which targets transit dependent riders, and fixed route service, which is more efficient in larger
cities having significant volumes of transit ridership. A deviated fixed route service stops at scheduled “time points”—
or “checkpoints”—much as a fixed route service does. However, the route taken between points can vary from trip to
trip. This “connect-the-dots” approach offers the best of both worlds: Passengers wishing to catch the bus at the last
minute can wait at a time point; at the same time, the driver can receive a pick-up request from a dispatcher and
“deviate” from the route accordingly. Hence, deviated fixed route trips can take longer than fixed route trips. At the
same time, the service is more visible to the public than one that operates on strictly a demand-response basis.
Fixed Route Buses: A service that operates on a route that never varies, although alternate routes may be used on
Saturday or Sunday. Fixed route buses typically operate on headways of 60 minutes or less—with even more
frequent service offered during peak travel periods. All passengers board at posted bus stops. Some of these are
“time points” that appear in published timetables, but intermediate stops not listed in schedules may also be served.
The new Douglas Rides service is an example of a fixed route service operating on loop routes.
Regional Commuter Service: Commuter services typically offer several departures in the morning, timed to arrive
at the employment center at the beginning of the work day, and afternoon departures scheduled at the end of the
work day. Such services do not necessarily operate on weekends, but may offer weekend schedules timed to
accommodate shoppers and tourists. The existing Cochise Commuter is such a service, and could be operated with
any of the types of vehicles shown, or with full size over-the-road coaches, as demand warrants.
Douglas Rides
It should be noted that the Douglas Rides, a transit service operated by Catholic Community
Services and funded in part through the FTA Section 5311 Program administered by ADOT,
began operation in December 2006 as this planning study was nearing completion. Douglas
Rides provides fixed route service on three loop routes that cover most of the study area as
described in Chapter 2 of this report. Three vehicles are needed to service the three loop
routes. Currently, vehicles already owned by CCS are being used; however two new vehicles
have been ordered especially for Douglas Rides use and will be placed in service during 2007.
CCS personnel report that ridership continues to grow. A total of 326 passengers were carried
in December 2006, and over 400 were carried during the first three weeks of January 2007.
The service has facilitated patronage of Douglas merchants by residents of Agua Prieta and
both the merchants and the transit users are reported to be pleased with the new service. The
provision of the Douglas Rides service is consistent with, and directly addresses several of the
transit service recommendations made in this report.
7-6
EXHIBIT 7-6
TYPES OF TRANSIT VEHICLES
Wheelchair-accessible vans are
commonly used for both paratransit
and dial-a-ride services, and may
also be employed by vanpools that
include mobility-limited participants.
—American Public Transit Association photo
—Lima & Associates photo
This “cutaway” vehicle, comprising a
minibus body constructed on a
recreational vehicle chassis, is used
by Valley Metro for paratransit
services. However, similar vehicles
are typically used in both deviated
fixed route and downtown or
neighborhood circulator services.
Heavy-duty transit buses such as this
Flagstaff Mountain Line Transit
vehicle resemble those used in the
Phoenix and Tucson metro areas but
are shorter and have less passenger
capacity. These vehicles can be
made fully accessible and typically
have long useful lives. They are
suitable for both fixed and deviated
fixed route services in smaller cities.
Vista Transit in Sierra Vista operates
similar vehicles.
—Lima & Associates photo
7-7
Transportation Demand Management Alternatives
Transportation Demand Management consists of a wide range of programs and services that
enable people to get around without driving alone. Included are alternative transportation
modes such as carpooling, vanpooling, transit, bicycling, and walking as well as programs that
alleviate traffic and parking problems such as telecommuting, variable work hours, and parking
management.
Transportation Demand Management can address the needs of those traveling long distances
with rideshare options such as vanpools and carpools. These types of services are vital in
moving people around large areas, whether for work or for traveling to regional centers that
have special services, medical facilities, or retail stores.
Potential Sources of Transit Funding
Significant federal sources of funding grants are overseen and managed by the Federal Transit
Administration (FTA); these funds are administered in Arizona by the Public Transportation
Division of ADOT (ADOT PTD). FTA funding levels are part of the Safe, Accountable, Flexible,
and Efficient Transportation Equity Act: A Legacy for Users (SAFETEA-LU), the successor to
the Transportation Equity Act for the 21st Century (TEA-21). The federal transit laws are
contained in Title 49 of the United States Code (USC), Chapter 53. The key transit grant
provisions applicable to Douglas are covered in the following sections of Chapter 53 of the USC:
• Section 5310: Formula Grants and Loans for Special Needs of Elderly Individuals and
Individuals with Disabilities
• Section 5311: Formula Grants and Loans for rural and small urban public transportation
• Section 5313: State Planning and Research Programs
Typically, public agencies are the only transit operators considered as potential recipients of
Section 5311 funds. However, in certain cases established private sector non-profit agencies
may be eligible. The City and prospective operators should explore this option with the ADOT
Public Transit Division.
Other federal sources of funding include the Temporary Assistance for Needy Families
Program, Title III Funds of the Older Americans Act, and Surface Transportation Program funds.
State Sources of Funding include the LTAF and LTAF II funds, which are distributed directly to
cities, towns, and counties in Arizona. Other sources of funding include farebox revenues,
advertising and “in kind” revenues, local taxes or bonds, and the use of volunteers.
The Local Transportation Assistance Fund II, or LTAF II, program, which derives funds from the
State’s share of lottery “Power Ball” ticket receipts, has been one of the key sources for the local
matching funds for these federal funds. Since the implementation of LTAF II, the legislature has
provided that when these receipts reach a certain threshold amount in any fiscal year, the
balance flows to the LTAF II program for apportioned distribution to councils of governments,
county governments, and local governments. However, since the legislature has raised the
threshold to $37 million and Power Ball net receipts are not forecast to reach $37 million in fiscal
2006, the LTAF II program is essentially unfunded. Agencies have the option of providing the
local match from their general funds, but the lack of LTAF II monies is still likely to adversely
impact the availability of funding for transit projects and programs.
7-8
Coordinating Local Human Services Transportation Programs
Arizona Rides is a statewide effort to coordinate provision of human services transportation
within counties or regions of counties to increase efficiency, limit service duplication and
confusion, and save costs. Arizona Rides was initiated in response to the federal “United We
Ride” program established in 2004. “Pinal Rides,” a pilot project of the program, funded a study
of the concept in Central Pinal County. The Final Report of the pilot project was published in
December 2005. Recommendations included the establishment of a transit coordinating council
for the study area and the implementation of service along two regional corridors. The City
should encourage current and future providers of human services transportation in the area to
coordinate services and operations in order to limit duplication and save costs.
RECOMMENDED TRANSIT SERVICES
Exhibit 7-7 depicts the transit service areas recommended for Douglas, based on the combined
population and employment densities discussed previously. These service areas are very
consistent with the service areas adopted for the new Douglas Rides service, except that
Douglas Rides also serves the area north of SR 80 and west of Pan American Avenue.
Next steps recommended to be taken by the City are the following:
• Based on estimated 2005 combined population and employment densities, establishing
a local transit circulator within the core area of the City of Douglas appears feasible. The
City should encourage Catholic Community Services to collect ridership data on the new
Douglas Rides operation including the place of residence, destination, age, and
employment status of riders. After Douglas Rides has been operating long enough to
produce significant ridership data, the City should coordinate with CCS in the conduct of
an evaluation of the operation to identify any improvements needed to make the service
more effective and efficient, as well as potential areas for service expansion.
• The level of LTAF II funding fluctuates from year to year and the City should evaluate
additional options for generating local monies to be used as “local matches” for federal
transit capital and operating funds.
• The City should also be prepared to step in and participate in the funding, operation, and
expansion of the Douglas Rides and Cochise Commuter services as may be needed.
• The City should monitor the operations of other regional services such as the Douglas
shuttle and get proactively involved if needed to ensure continued alternative mode
service to Tucson, Phoenix, and other cities—avoiding unnecessary reliance on private
automobiles for travel in an age of steadily increasing fuel costs.
• Rising fuel prices will also impact the costs of operating public transportation systems,
and more public support may be needed to keep essential services in operation.
• Where feasible, the City should work together with Agua Prieta, Sonora to jointly
address transit and other transportation issues and to explore any reasonable
possibilities for partnering in the provision of transportation services to the metropolitan
area.
• Currently, the forecasted increases in population and population density for Douglas
indicate that bus service may adequately meet the region’s transit needs for the
foreseeable future. However, the City should follow closely the developments in Tucson
regarding the planned implementation of “Modern Streetcar” service in that city. If the
population growth rate and traffic volumes in the area increase significantly, long-term
planning for the future use of modern streetcars for a circulator connecting the port of
7-9
entry with the downtown area and key commercial areas may become appropriate,
subsequent to the establishment of a comprehensive local bus system. Exhibit 7-8
shows the type of vehicle used in downtown Portland, Oregon.
Summary of Transit Findings
• Forecasted concentrations of population and employment can be used to predict the
origins and destinations of peak-hour trips including transit trips.
• Portions of a core area of the City currently exceed density thresholds used for
implementing some types of public transportation.
• Catholic Community Services currently operates paratransit services, a deviated fixed-route
“Cochise Commuter” service, and a “Douglas Rides” local circulator service on
three loops. Future transit improvements could include the expansion of these
operations as well as the implementation of a community ride-sharing program.
• Potential sources of funding include Federal Transit Administration program monies for
metropolitan planning areas administered by the Arizona Department of Transportation
(ADOT), as well as Local Transportation Assistance Fund (LTAF II) monies, farebox
revenues, and local match funds.
• The City should discuss with the ADOT Public Transportation Division the conduct of a
transit feasibility and implementation study.
• The City should plan for the provision of local funding monies and evaluate the available
options.
• The City should monitor closely the operations of the Cochise Commuter and other
services and be prepared to assist, if needed, to avoid service interruption.
• Rising fuel prices will also impact the costs of operating public transportation systems,
and more public support may be needed to keep essential services in operation.
• Where feasible, the City should work together with Agua Prieta, Sonora to jointly
address transit and other transportation issues and to explore any reasonable
possibilities for partnering in the provision of transportation services to the metropolitan
area.
• If the population growth rate and downtown traffic volumes in the Douglas area increase
significantly, once a local bus system is in place, the City may want to consider, as a
long-term option, a Port-of-Entry-downtown loop using “modern streetcars” like those
being planned for Tucson.
#
#
#
# #
A Av e
F Ave
10th St
15th St
G Ave
8th St
19th St
Highway 80
1st St
Washington Ave
3rd St
Grace Ave
Chino Rd
Pan American Ave
14th St
Highway 191
5th St
Douglas Av e
Leslie Canyon Rd
9th St
Sulphur Sprin g S t
11th St
Florida Ave
5th St
Highway 80
A ir por t Rd
Van Buren Ave
5 1
2
4
3
N
Draft 2-3-06
0 0.25 0.5 Miles
#
Regional Corridor
Proposed Service Area
Future Expansion
Existing Cochise
Commuter Stop
1
Exhibit 7-7
PROPOSED TRANSIT SERVICE AREAS
7-10
7-11
Exhibit 7-8
MODERN PORTLAND STREETCAR
Source: www.nwvirtualtransit.com
FUTURE PEDESTRIAN AND BICYCLE ACTIVITY AND FEATURES
There were only very limited pedestrian and bicycle counts available for this study. It is
expected that pedestrian and bicycle travel demand will increase in direct relation to the
population growth in the City of Douglas and across the border in Aqua Prieta.
The City of Douglas has several characteristics that make it a good environment for walking and
bicycling. The City has a compact form where work, shopping and recreational activity locations
are close to existing residential areas. Except during the hottest months, the climate is very
suitable for walking or biking, and the terrain is relatively flat. The general grid pattern of the
existing street network provides numerous travel route options for pedestrians and bicyclists.
Traffic volumes on most streets are relatively low as are traffic speeds, and the roadway system
does not present significant barriers to either walking or cycling. Most City streets south of SR
80 and east of Pan American Avenue have sidewalks. These factors, combined with the
proximity of the POE to the downtown and the new Wal-Mart, suggest the pedestrian and
bicycle activity will likely increase in the future, if these activities are encouraged.
There are factors in the City that work against bicycling. The major and minor collector streets
are relatively narrow, with narrow lanes and on-street parking. The downtown area has
predominately angle parking on the streets, which may be more dangerous for cyclists than
parallel parking because it is more difficult for motorists backing out of these spaces to see on-coming
cyclists. There are no designated bicycle features on any of the existing roadways, and
there is no system of designated bike routes.
The following recommendations are provided for the development of future pedestrian and
bicycle features:
• Develop a comprehensive bicycle system plan for the City. The bicycle system plan
should include the following:
o A route plan and map designating bicycle facilities that interconnect the existing and
future activity centers such as the downtown, the POE, the new commercial district
7-12
west of Pan American Avenue along 5th Street, the schools along 15th Street, and the
residential areas of the City.
o A list of prioritized bicycle system projects and costs to implement the system.
o Design standards and typical cross-sections for the various elements of the bicycle
system, including on-street bicycle lanes and shared-use paths.
o Signing, striping, and traffic control standards required for the provision of on-street
and off-street elements of the system.
o Guidelines for policies and procedures necessary to implement the plan.
o Recommendations for funding plan implementation.
• Provide a bicycle connection between the new commercial district on 5th Street west of
Pan American Avenue to the new shared use path along Pan American Avenue.
• Extend the shared-use path on the west side of Pan American Avenue south from 3rd
Street to the POE.
• Develop a lighted and landscaped pedestrian pathway from the POE and the City Park,
just north of the POE on Pan American Avenue, to the east through Speer Park.
• Provide bicycle racks in the downtown area and in the new commercial area on 5th
Street west of Pan American avenue. Require that new commercial areas provide
conveniently placed bicycle racks.
• Connect the emerging residential areas developing north of SR 80 to the areas south of
SR 80 with on-street bicycle facilities.
• Inventory the City’s sidewalk system to identify locations that do not meet ADA
requirements and establish a plan to upgrade these locations.
• Develop and implement a safe routes to school program for elementary school and
junior high school students. The purpose of the safe routes to school initiative is to
encourage students to walk or bicycle to school as part of a healthy lifestyle. Safe
routes to school programs engage students, teachers, school administrators, and
parents in the development of a plan that establishes specific safe routes of travel to and
from school, develops educational materials to promote safe walking and bicycling, and
establishes the policies and guidelines needed to implement the program.
8-1
8. SUMMARY OF TRANSPORATION PLAN RECOMMENDED
IMPROVEMENTS AND ACTIONS
ROADWAY SYSTEM
Traffic Circulation and Operations Improvements
In general, the current streets and intersections provide adequate capacity and level of service
for existing and forecast year 2030 traffic. There are a few intersections that are beginning to
experience, or are forecast to experience traffic operating conditions that may require attention if
traffic volumes continue to increase. These intersections and the associated congestion issues
are summarized below in Exhibit 8-1.
Several actions have been identified to address traffic operations, traffic safety, and parking
issues. The recommended short, mid and long-term actions to improve traffic operations are
provided in Exhibit 8-1 along with planning level cost estimates for these improvements. The
cost estimates are in year 2006 dollars.
Douglas, Arizona U.S. Port of Entry Feasibility Study 2006
At the time that this planning study was nearing completion the United States General Services
Administration Douglas, Arizona U.S. Port of Entry Feasibility Study 2006 had completed its 75
percent submittal. The stated purpose of the feasibility study is to “address the issues of traffic
congestion, pedestrian safety, and officer security while providing more efficient operations at
the Port“, and to “resolve as many of the issues as possible or, at the least, mitigate their
effects.”
The 75 percent submittal of the feasibility study contains five alternatives for the redesign and
location of the Port for processing vehicles entering the US. The selected alternative may
directly impact the need for some of the roadway system improvements identified in Exhibit 8-1.
Four of the feasibility study alternatives move the inbound and outbound commercial truck traffic
west of Pan American Avenue. This would be consistent with, and benefit the City’s past and
current efforts to provide pedestrian and bicycle facilities along Pan American Avenue and
provide an attractive gateway for private vehicles, buses, pedestrians and bicyclists entering the
city through the POE. If one of these four alternatives is implemented, the City of Douglas
should not have to implement the recommended traffic operations improvements at the
intersection of 9th Street and Pan American Avenue to improve truck access to the warehouses
west of Pan American Avenue. This is because commercial trucks will then access the 9th
Street warehouses from the west of Pan American Avenue. This would also provide the option
for the City to eliminate or modify 9th Street access from the west to Pan American Avenue to
prevent commercial trucks from using Pan American Avenue to access the warehouses.
Safety Improvements
A three-year crash history for six intersections was evaluated to identify improv