Northwest Cochise County long-range transportation plan

              Northwest Cochise County
Long-Range Transportation Plan
Final Report
Prepared for:
Arizona Department of Transportation
Cochise County
City of Benson
Prepared by:
September 2010
Northwest Cochise County Long-Range
Transportation Plan Final Report i September 2010
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TABLE OF CONTENTS
1.0 INTRODUCTION....................................................................................................................1
1.1 STUDY AREA OVERVIEW .......................................................................................1
1.2 STUDY OBJECTIVES.................................................................................................3
1.3 PUBLIC INVOLVEMENT PROCESS........................................................................3
1.3.1 Technical Advisory Committee........................................................................3
1.3.2 Public Meetings ................................................................................................3
1.3.3 Stakeholder Input..............................................................................................4
1.4 FINAL REPORT ORGANIZATION ...........................................................................4
2.0 CURRENT CONDITIONS .......................................................................................................6
2.1 REVIEW OF RELEVANT PREVIOUS STUDIES .....................................................6
2.2 EXISTING DEVELOPMENT PATTERNS.................................................................7
2.2.1 Existing Socioeconomic Conditions.................................................................9
2.2.2 Population and Employment ............................................................................9
2.2.3 Minority and Disadvantaged Populations.......................................................12
2.3 EXISTING TRANSPORTATION SYSTEM.............................................................13
2.3.1 Study Area Roadways ....................................................................................13
2.3.2 Existing Local Traffic Volumes and Levels of Service..................................13
2.3.3 Crashes............................................................................................................15
2.3.4 Existing Transit Operations ............................................................................16
2.3.5 Existing Railroads...........................................................................................16
2.3.6 Existing Bicycle and Walking Conditions......................................................16
2.4 EXISTING ENVIRONMENTAL CONDITIONS .....................................................17
2.4.1 Local Natural Resource Features....................................................................17
2.4.2 Wildlife Linkages ...........................................................................................18
2.4.3 Conservation Areas.........................................................................................18
2.4.4 Cultural Resources..........................................................................................18
2.5 STAKEHOLDER INPUT...........................................................................................19
3.0 FUTURE CONDITIONS ........................................................................................................21
3.1 MODEL DEVELOPMENT........................................................................................21
3.1.1 Future Land Use .............................................................................................21
3.1.2 Future Socioeconomic Projections .................................................................23
4.0 ALTERNATIVES DEVELOPMENT.....................................................................................26
4.1 GOALS AND OBJECTIVES .....................................................................................26
4.2 NO-BUILD ALTERNATIVE.....................................................................................27
4.3 BUILD ALTERNATIVES CONSIDERED ...............................................................28
4.4 EVALUATION OF POTENTIAL ALTERNATIVES...............................................30
4.5 SUMMARY OF RESULTS........................................................................................30
5.0 RECOMMENDED LONG-RANGE PLAN ...........................................................................32
5.1 ROADWAY................................................................................................................32
5.2 TRANSIT....................................................................................................................32
5.3 NON-MOTORIZED...................................................................................................33
5.4 ACCESS MANAGEMENT AND SAFETY..............................................................33
5.5 THE NATURAL AND PHYSICAL ENVIRONMENT ............................................33
5.6 FINANCIAL CONSTRAINTS...................................................................................33
5.7 NEXT STEPS..............................................................................................................34
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LIST OF TABLES
Table 1 Existing Population and Employment Estimates (2007) ............................................ 9
Table 2 2000 Demographics .................................................................................................. 12
Table 3 Disadvantaged Populations....................................................................................... 12
Table 4 Types of Crashes throughout Northwest Cochise County........................................ 15
Table 5 Crashes by Roadway................................................................................................. 15
Table 6 Potential Linkage Zones within Northwest Cochise County.................................... 18
Table 7 Future Year Growth Projections ............................................................................... 23
Table 8 Level of Service Distribution by Mileage in Study Area ......................................... 27
Table 9 Future Alternatives Considered Summary................................................................ 29
Table 10 Alternatives Evaluation Analysis Summary ............................................................. 31
Table 11 Recommended Improvement Plan............................................................................ 35
LIST OF FIGURES
Figure 1 Study Area .................................................................................................................. 2
Figure 2 Land Use ..................................................................................................................... 8
Figure 3 2007 Population Density........................................................................................... 10
Figure 4 2007 Employment Density ....................................................................................... 11
Figure 5 Existing Street System .............................................................................................. 14
Figure 6 Stakeholder Identified General Themes.................................................................... 20
Figure 7 Future Land Use Plan................................................................................................ 22
Figure 8 Estimated Future Population Density (2020, 2040).................................................. 24
Figure 9 Estimated Future Employment Density (2020, 2040) .............................................. 25
Figure 10 Final Recommended Northwest Area 2040 Map...................................................... 36
Figure 11 Level of Service Results for the Final Recommended Alternative........................... 37
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1.0 INTRODUCTION
The Northwest Cochise County Long-Range Transportation Plan (Plan) provides a guide for
future transportation system development in the northwest region of Cochise County. This plan
responds to key trends, emerging issues, and community visions and goals. The Plan includes
strategies and actions for the years 2020 and 2040 to address identified transportation needs,
while being sensitive to possible future funding constraints. This Plan was prepared under the
Arizona Department of Transportation (ADOT) Planning Assistance to Rural Arizona Program
(PARA) in cooperation with Cochise County and the City of Benson. The planning process was
guided by a local Technical Advisory Committee (TAC), which included representatives from
local and state agencies.
This Final Report provides an overview of both the study effort and the work products developed
throughout the planning process, which forms the basis for the final plan recommendations. The
planning process analyzed the existing transportation system, land use and socioeconomic
conditions within the study area; conducted in-depth local stakeholder interviews; developed
future growth projections; provided opportunities for public input; and included an evaluation of
alternative future solutions. The deliverables developed throughout this study were:
• Current Conditions Working Paper;
• Model Development and Future Conditions Working Paper;
• Key Issues, Common Themes and Interview Notes Summary Paper;
• Railroad Crossing Assessment Working Paper;
• Funding Assessment and Impact Fee Planning Working Paper; and
• Evaluation Criteria and Improvement Plan Technical Report.
This planning effort resulted in a final recommended 2020 and 2040 transportation improvement
plan for Northwest Cochise County as presented in this Final Report.
1.1 STUDY AREA OVERVIEW
The study area encompasses 234 square miles in the northwestern corner of Cochise County,
which includes the City of Benson and the unincorporated areas of St. David, J-Six/Mescal, and
Pomerene, as shown in Figure 1.
The study area includes the junction of three State highway corridors: Interstate 10 (I-10), State
Route 80 (SR 80), and State Route 90 (SR 90). These highways provide access to the rest of
Cochise County and the Tucson metropolitan area to the west. I-10 is a major interstate corridor
and provides access to eastern and western areas of the State. I-10 runs parallel to the Union
Pacific Railroad (UPRR) Sunset Route which passes through Northwest Cochise County and the
City of Benson as it connects the cities of Los Angeles, California, and El Paso, Texas.
The study area is still experiencing residential and commercial growth, although at a lower rate
compared to recent history. With the study area situated between Tucson, Sierra Vista (and Fort
Huachuca), and the international ports-of-entry at Douglas and Naco, some workers commute
outside the study area for employment. In addition, residents of eastern Pima County tend to
shop in the City of Benson. The study area is also a popular destination for Arizona’s winter
residents and has become a renowned setting for bird watching due to its location in the north-south
flyway.
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Figure 1 Study Area
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1.2 STUDY OBJECTIVES
Based on previously identified key issues for Northwest Cochise County and discussions with
both ADOT and the TAC, the following objectives were developed for this Long-Range
Transportation Plan:
• Prepare a plan that considers the recommendations and proposals of four existing
transportation plans: the Northwest Cochise County Transportation Plan, the City of
Benson General Plan and Circulation Plan, the Benson Small Area Transportation Study,
and the Cochise County Comprehensive Plan;
• Identify solutions to current and projected congestion and transportation system access
problems identified on SR 80 and SR 90, and the interchanges along I-10;
• Identify potential alternative transportation facilities, including demand response transit,
and bike and pedestrian systems for addressing future alternative transportation needs;
• Evaluate alternative transportation scenarios for years 2020 and 2040 and prepare a
transportation improvement plan, including cost estimates for the preferred alternative;
and,
• Address special area concerns including railroad/highway crossings, access ramps to I-10
and identify potential financing resources, including impact fees, for completing the
recommended transportation plan.
1.3 PUBLIC INVOLVEMENT PROCESS
The public involvement process supported and contributed to the development of this Long-
Range Transportation Plan. In any project, both the public and decision makers need to fully
understand the problems, opportunities and available options to finding acceptable solutions.
Effective public participation facilitates understanding and improves decisions by bringing all
issues and perspectives to the table. The public involvement process for this plan included the
guidance of the TAC, public meetings and stakeholder interviews.
As the study progressed, the public was provided with information about open houses and plan
documents in a variety of ways. Some of these communication methods included press releases,
radio slots on local radio stations, updates on the City of Benson website, display advertising in
the Benson newspaper, flyers announcing meetings in citizens’ water bills, e-mail blasts, posters,
and information posted on the ADOT website.
1.3.1 Technical Advisory Committee
At the beginning of the study, the TAC was formed to provide technical input into the
development of the plan. Members of the TAC included ADOT representatives, the Study Team,
and Cochise County and City of Benson representatives. The kickoff meeting, held on May 21,
2009, established the objectives and direction for the study. Five additional TAC meetings were
held throughout the study to share information, develop or modify public outreach strategies and
review progress.
1.3.2 Public Meetings
Two public meetings were held over the course of the study. The first meeting was held at the
Benson Senior Citizens Center on June 30, 2009. This meeting was held early in the study
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process to discuss existing plans, future needs, results of stakeholder interviews, and to gather
input from the public. The second public meeting was held on June 8, 2010 at Cochise College –
Benson Center. Progress made through various studies was presented and public input was
solicited on proposed projects as alternative transportation scenarios were developed.
In the case of both public meetings, attendees were encouraged to view and comment on the
display boards and to talk with members of the Study Team and the TAC. Large maps were used
as visual aids for individuals to provide comments. Comment forms and project handouts were
provided and the public was urged to provide their input. Following brief presentations a public
question/answer period was held at each of the meetings and Study Team members were
available for one-on-one conversations.
1.3.3 Stakeholder Input
Stakeholder input was sought from specific interests within the study area. Stakeholders for this
project included people with additional information to add to the process, by virtue of their
position, like an elected official, or by virtue of economic interest, (they own commercial or
development interest), or by virtue of a direct vested interest, usually because they reside or work
in the area. A series of one-on-one interviews were held with stakeholders to identify their
concerns and to gather suggestions on possible solutions. The source of these comments were
tracked, not to priority rank them but to better understand the frame of reference that those
comments reflected. Local neighborhood meetings were also hosted by the J-Six/Mescal CDO
and the St. David School throughout the planning process to gather additional input into issues of
concern in the Northwest Area. These informal meetings not only included area residents and
local business owners but also elected officials and agency staff and provided real-time public
input into the Northwest Area Plan development.
1.4 FINAL REPORT ORGANIZATION
The remaining chapters of the Final Northwest Cochise County Long-Range Transportation Plan
are organized as follows:
Chapter 2: Current Conditions – Inventories the physical, transportation, natural and cultural
resources and describes the current characteristics and constraints of the study area. These
characteristics include an analysis of the base year development pattern and transportation
system, as well as population and employment estimates for developing future year scenarios.
Chapter 3: Future Conditions – Evaluates 2020 and 2040 population and employment
projections and allocates this information to the study area Transportation Analysis Zone (TAZ)
system. These projections were input into the County-Wide QRSII Travel Demand Model in an
effort to understand future socioeconomic demographic trends.
Chapter 4: Alternatives Development – Analyzes and evaluates the performance of various
proposed future transportation alternatives for the years 2020 and 2040.
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Chapter 5: Recommended Long-Range Plan – Based on the results of the alternatives
evaluation a recommended long-range plan was developed for the study area. These
recommendations include:
• Near term projects;
• 2020 projects;
• 2040 projects;
• Project prioritization; and
• Generalized project cost.
The Final Report of the Northwest Cochise County Long-Range Transportation Plan highlights
the most important information and major aspects of the plan. For more detailed analysis of
specific tasks, refer to the individual working papers completed as part of this study.
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2.0 CURRENT CONDITIONS
The analysis of the study area’s existing conditions provides an inventory and summary of the
physical, natural, socioeconomic, transportation system and travel conditions within Northwest
Cochise County. Several transportation plans were previously prepared for portions of the study
area, as examined in Working Paper #1. Understanding previous studies helps to determine
which of the key components and priorities remain valid and should stay in place.
2.1 REVIEW OF RELEVANT PREVIOUS STUDIES
ADOT, the City of Benson, and Cochise County identified four recent studies that include vision
statements, goals and recommendations that are important to understanding the current
development patterns and transportation system. The following studies were reviewed during the
course of this effort:
• Cochise County Comprehensive Plan, 2006
• City of Benson General Development Plan, 2002
• City of Benson Small Area Transportation Study (SATS), 2007
• Northwest Cochise County Transportation Planning Study, 2005
Cochise County Comprehensive Plan, 2006 – Cochise County adopted their Comprehensive
Plan in 1984 and last amended it in 2006. The stated purpose of the Plan was to promote the
future growth of Cochise County in an “orderly, well-planned manner.” The Cochise County
Comprehensive Plan emphasizes the use of the existing street network; calls for traffic
circulation to be compatible with adjacent area use; and directs that development impacts should
be adequately addressed “that are reasonably related and roughly proportional to the impact of
their use on the public roadway system.”
City of Benson General Development Plan, 2002 – The City of Benson General Development
Plan, which was approved in 2002, provides a long-range guide for the future development of the
City of Benson. The Circulation chapter of this plan includes goals, objectives, and policies to
guide future development of an arterial roadway system. The three main circulation goals are:
• Maintain a safe and efficient transportation network that enhances the flow of goods,
commerce, vehicular traffic and people to and through the City of Benson;
• Improve multi-modal transportation coordination; and
• Preserve traffic capacity and efficient flow of SR 90.
City of Benson Small Area Transportation Study (SATS), 2007 –The purpose of the study
was to develop a comprehensive multi-modal transportation plan for the Benson area for a
25-year time horizon. To achieve this, the study provided short-, mid- and long-range planning
guidance, recommended needed street improvements, and identified the linkages between land
use decisions and transportation system development. The study identified a number of
transportation issues including; access management, congestion, street network continuity, and
funding deficiencies. This study produced a set of recommendations for short-, mid- and long-range
projects.
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Northwest Cochise County Transportation Planning Study, 2005 – The study developed
three system alternatives for improved east-west connectivity that suggested opportunities for an
I-10 bypass, the establishment of new north-south connections to I-10, and the extension of
existing frontage roads along I-10. These alternatives also recognized the need for better
connections to new development and improved recreational access. This study was not formally
adopted by Cochise County and many of the development assumptions of this study did not
materialize.
In summary, the four studies reviewed provide a basis for the understanding of the development
of the study area and its transportation needs. Common themes included:
• Improving safety by investing in and maintaining existing infrastructure;
• Expanding the local roadway network to serve growth areas and provide better
circulation with the region;
• Investing in transit, bicycling and walking as well as roadways to promote a multi-modal
transportation system; and
• Identifying adequate funding sources to ensure effective implementation.
2.2 EXISTING DEVELOPMENT PATTERNS
The identification of the general development patterns within the study area was based on current
land use, existing zoning and open space designations, and socioeconomic characteristics.
The majority of private and public lands within the study area remain undeveloped. Commercial
development is primarily located in Benson along Business 10 (B-10) (4th Street) and SR 80, as
well as along SR 90 just south of I-10. Residential development is primarily located within the
City of Benson, and clustered in the unincorporated communities of Pomerene, St. David, J-Six
and Mescal. Residential development in recent years has occurred along SR 90 in the proposed
Whetstone Ranch planned development.
The Benson Municipal Airport is located about 4 miles northwest of Benson city limits.
Industrial sites include Ocotillo Road north of I-10, along the railroad tracks east of the
downtown and the Apache Nitrogen Plant.
There is also substantial open space within the study area including the San Pedro River corridor,
St. David Cienega, Kartchner Caverns State Park, the Coronado National Forest as well as local
parks and wildlife corridors.
Figure 2 illustrates the existing planned development pattern for the study area based on Cochise
County and City of Benson land use data.
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Figure 2 Land Use
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2.2.1 Existing Socioeconomic Conditions
The study area includes the City of Benson and the Census Designated Communities of
Pomerene and St. David. The existing conditions analysis looked at the demographics of
Northwest Cochise County. Household and employment figures were organized by TAZs, which
represents unique travel-sheds producing and attracting traffic that are typically split along major
roadways and significant geographic features.
2.2.2 Population and Employment
Base year population (defined as 2007) was derived from Census 2000 block level data. A
growth factor of 2 percent per year was used to increase the population up to 2007 levels. These
population totals were verified against Department of Commerce (DOC) official population
estimates for 2007, which considered a slightly different geographic area. Population estimates
assumed 2.3 persons per household.
Base year employment was derived from data purchased from InfoUSA (a commercial provider
of business data) as part of a separate county-wide modeling effort being conducted for Cochise
County. The employment figures were compared to the DOC economic report (January 2008) for
the Benson area to verify employment totals. The DOC report considers a different geographic
area than the study area; however, in general the overall employment estimates were comparable.
Table 1 shows 2007 population and employment estimates for the study area, from both DOC
and also based on the InfoUSA and Census data.
Table 1 Existing Population and Employment Estimates (2007)
DOC InfoUSA, Census
Population 12,292 12,043
Employment 2,736 3,917
Source: Department of Commerce, 2010, Census 2000, InfoUSA 2009
Figures 3 and Figure 4 show 2007 population and employment density by TAZ, respectively,
within the Northwest Cochise County Study Area.
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Figure 3 2007 Population Density
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Figure 4 2007 Employment Density
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2.2.3 Minority and Disadvantaged Populations
County-wide the average minority population, as reported in the 2000 Census was 42 percent.
For the study area, the minority population comprises about 4 percent of the total population.
Minority populations, as defined for the purposes of this study, and for transportation planning
purposes includes residents who are not reported as White/Non-Hispanic in the Census.
According to the 2000 US Census data, 84 percent of the residents living in Northwest Cochise
County were of White descent with 14 percent defined as Hispanic, as shown in Table 2.
Table 2 2000 Demographics
White
African
American
Native
American Asian
Hawaiian/
Pacific
Islander
Other
Race
Multi-
Race Hispanic
Arizona 3,873,611 158,873 255,879 92,236 6,733 596,774 146,526 1,295,617
Cochise County 90,269 5,321 1,350 1,942 301 14,193 4,379 36,134
NW Cochise
County
(study area) *
8,452 63 136 43 10 20 16 1,426
Unincorporated
NW Cochise
County *
4,789 27 74 19 4 6 13 523
City of Benson 3,663 36 62 24 6 14 3 903
Source: US Census Bureau, 2000
*Figures estimated from underlying census blocks
Disadvantaged populations include persons with a disability, person over the age of 65, or
persons below the poverty level. The disabled population includes those who suffer from
blindness, deafness, severe vision/hearing impairments and/or limited mobility. According to the
2000 Census, 29 percent of the population in the study area reported as disabled, which is higher
than the 14 percent average for Cochise County. Those over the age of 65 comprise a much
larger portion of the study area, 24 percent, than the County at large, which was about
11 percent. About 9 percent of the population is living below the poverty rate which is lower
than the average county rate of approximately 13 percent. Table 3 summarizes the Census 2000
reporting on disabled, the elderly and populations below the poverty level.
Table 3 Disadvantaged Populations
Disability Age 65 or older
Below Poverty
Level
Arizona 902,252 667,839 698,669
Cochise County 22,467 17,365 19,772
NW Cochise County (study area) * 3,042 2,449 939
Unincorporated NW Cochise County * 1,766 1,049 295
City of Benson 1,276 1,400 644
Source: US Census Bureau, 2000
*Figures estimated from underlying census blocks
The implications of this data for the study area are that there are few Title VI and Environmental
Justice issues of concern but more needs related to Americans' with Disability Act (ADA) and
elderly mobility.
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2.3 EXISTING TRANSPORTATION SYSTEM
An inventory of the existing transportation system in Northwest Cochise County was conducted
to understand the existing travel conditions and to identify the study area’s current needs. The
roadway system infrastructure was examined along with the roadway level of service, and
operating characteristics. In addition to the roadway system, the inventory also included public
transit, railroad, bicycle, pedestrian and aviation elements.
2.3.1 Study Area Roadways
The primary highway corridor in the study area is I-10, traveling east to west through Cochise
County. I-10 has two travel lanes in each direction and is characterized by steep grades as it
passes through the San Pedro Valley. FHWA has indicated that they have restricted access
points in the northwest area with one-foot no access easements along frontage roads in the area
(although these easements have not been recorded with Cochise County as of the date of this
study). I-10 also serves as a local connector throughout the study area linking the J-Six/Mescal
community to Benson. Local traffic congestion can reduce capacity on I-10 particularly between
the SR 90 and SR 80 traffic interchanges. State Routes 80 and 90 serve as the study area’s main
north-south arterials and provide access to the other major cities and recreation/tourist sites in
and around Cochise County, including Tombstone, Sierra Vista, Kartchner Caverns, Coronado
National Forest, Bisbee and Mexico.
At the local level, 4th Street, which is also designated as B-10, bisects the City of Benson and
serves as the main connection between I-10 and SR 80. In addition to SR 80 and 90, the study
area is served by a number of County roads. These are typically two lane low-speed, low-volume
roadways that provide connections to or between the state routes. The study area also
includes a number of unmaintained or primitive dirt roads. These roads were included in this
study as they may serve as future improved alignments. Figure 5 identifies the existing roadway
network within Northwest Cochise County.
2.3.2 Existing Local Traffic Volumes and Levels of Service
I-10 is a major national transportation and freight corridor with daily traffic volumes that range
from 16,000 vehicles per day (vpd) east of Benson/SR 80, to about 30,000 vpd west of SR 90
(ADOT Traffic Count Database System, 2007). Truck traffic accounts for 45 percent of traffic on
this section of I-10. Daily traffic volumes on SR 90 are between 9,500 and 10,000 vpd. Volumes
for SR 80 range from 3,800 vpd south of Benson to nearly 11,000 vpd as they approach the City.
B-10/4th Street, has just over 16,500 vpd as it travels through the City of Benson. Most of the
other study area roadways have very low daily traffic volumes, typically less than 1,000 vpd.
Exceptions include J Six Ranch Road/Mescal Road and Pomerene Road, which have daily traffic
volumes between 2,000 and 3,000 vpd respectively. These two arterials connect with I-10 and
serve residential areas.
Existing Level of Service (LOS) is a function of the roadway capacity and existing traffic
volumes. Level of Service A is a roadway with little or no delay, whereas LOS F is considered
gridlock. Level of Service D is considered the accepted minimum for urban areas, and LOS C is
the accepted minimum for rural areas. Currently most of the study area roadways are functioning
at a LOS B or better. The section of B-10/4th Street through the City of Benson has the worst
existing LOS, operating at LOS C and D. This low level of service on Business 10/4th Street is
only at the peak times and also associated with the seasonal influx of winter visitors.
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Figure 5 Existing Street System
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2.3.3 Crashes
Crash data for the five-year period from January 2003 to December 2007 were provided by
ADOT. The data were analyzed and summarized for location, type, and severity of crashes.
There were a total of 1,056 crashes during this period of time across the roadway network within
the study area. There were 36 fatality crashes (3 percent) involving 1,576 vehicles, 525 injury
crashes (50 percent), and 495 property damage only crashes (47 percent). The total number of
crashes grew about 3 percent annually between 2003 and 2005. In 2006, the total number of
crashes dropped by 7 percent from 2005. 2007 experienced a higher than normal increase;
however, the number of fatalities dropped from 2005 to 2007. Table 4 summarizes the type of
crashes by year between 2003 and 2007.
Table 4 Types of Crashes throughout Northwest Cochise County
Type of Crash 2003 2004 2005 2006 2007 Total
Injury 108 121 101 92 103 525
Fatal 6 10 10 6 4 36
Property Damage Only 86 75 101 107 126 495
Total Crashes 200 206 212 205 233 1,056
Source: ADOT, 2009
Crashes were also analyzed with respect to the major roadways in the study area. As shown in
Table 5, 52 percent of all crashes in the study area occurred on I-10. SR 80 and SR 90 had
12 percent and 10 percent of all the crashes, respectively. B-10/4th Street, within Benson,
accounted for 10 percent of crashes and the remaining 16 percent occurred on county and local
roads.
Table 5 Crashes by Roadway
Roadway 2003 2004 2005 2006 2007 Total Percent
I-10 105 112 104 99 125 545 52%
SR 80 23 24 32 22 26 127 12%
SR 90 21 17 21 25 22 106 10%
B-10/4th Street 13 24 17 25 24 103 10%
Other Roads 38 29 38 34 36 175 16%
Total 200 206 212 205 233 1,056 100%
Source: ADOT, 2009
Percentage of fatalities in the study area was analyzed with respect to the County roadway
network. 64 percent of all fatalities resulted from crashes on I-10. State Route 80 had 19 percent
and SR 90 had about 9 percent. Approximately 3 percent of fatalities occurred on B-10/4th Street
with the remaining fatalities occurring on other roads within the study area.
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2.3.4 Existing Transit Operations
Transit service is limited within the study area to on-demand service for elderly and persons with
disabilities funded through ADOT’s Section 5310 program. This service, formerly run by
Catholic Community Services but now run by the City of Benson under the Benson Area Transit
system, provides a demand response service available five days a week for eight hours a day. For
residents of Benson, non-emergency medical transport is available in cooperation with Cochise
Health Systems. Trips are provided six days a week on an as-needed basis with seven vehicles
assigned in the study area.
Southeastern Arizona Behavioral Health Services, Inc. (SEABHS, Inc) offers rides between the
client’s home and outpatient health services in Benson and unincorporated areas within Cochise
County for intercity service. The Quiburi Mission Good Samaritan is also a Section 5310 grant
recipient providing transportation services to the Quiburi Mission clients throughout the Benson
area. Benson Station is the one Greyhound stop in the study area. From this station riders may
travel west to Tucson, Phoenix or further west or east toward El Paso, Texas by way of Willcox
and Las Cruces, New Mexico.
2.3.5 Existing Railroads
Two railroad lines currently exist within the study area, UPRR and San Pedro & Southwestern
Railroad (SPSR).
UPRR is a double-tracked line with ten at-grade crossings and two grade-separated crossings
within the study area, two of which cross private roads. According to the State of Arizona 2007
Railroad Inventory and Assessment and UPRR data, traffic on this section of the UPRR varies
from 44 to 49 freight trains per day. Approximately 20 percent of the national UPRR system
volume passes through the study area, and recent double tracking improvements could
potentially increase traffic volume to 80 to 100 trains per day in the future. The Sunset Limited
Route provides passenger service between New Orleans and Los Angeles with stops in Benson
three days a week at the Amtrak station located on 4th Street, just west of San Pedro Street.
SPSR is a short line single-track railroad that begins at a junction with UPRR near the inter-section
of SR 80 and West 4th Street in the City of Benson and continues south approximately
7.5 miles. Three at-grade crossings exist in this corridor, two of which cross private roads. There
are no grade-separated intersections along SPSR. SPSR provides service to one customer, the
Apache Nitrogen Plant, three days a week in the southern portion of the study area.
The UPRR tracks operate directly through the City of Benson, separating the north and south
portions of the city. The developed areas north of the railroad are predominantly residential
while the commercial strip of the city is centered along 4th Street, just south of the rail line.
2.3.6 Existing Bicycle and Walking Conditions
The study area has few existing sidewalks except for areas within the old town portion of the
City of Benson. Pedestrian activity associated with the State Highway System occurs primarily
within the developed areas of Benson, St. David, SR 80, and the I-10/SR 90 business area. These
state routes do not provide good walking conditions for pedestrians. Within urbanized areas such
as Benson, sidewalks are located at the back of the curb and pedestrians are immediately
adjacent to wide, high-volume, relatively high-speed roadways. Pedestrian activity is also
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common on roadway shoulders in areas like St. David, along SR 80. The frequency of curb cuts
is also of particular concern as many crashes involving pedestrians occur at driveway locations.
State routes with wide right shoulders (>4 feet), low volumes, and acceptable grades are typically
considered acceptable for bicycling. State routes within the study area do have wide shoulders
but can have higher traffic volumes, in particular during peak hours. B-10/4th Street through
Benson is narrow with little or no shoulders and a consistently higher level of traffic making this
segment of the state system undesirable for bicycling.
In 2009, ADOT completed a Statewide Pedestrian Safety Plan which addressed some of the
policy and engineering issues for improving pedestrian conditions along State Highways. In
2008, St. David Unified School District, ADOT and Cochise County applied for and received
transportation enhancement funds to construct a pedestrian pathway on the south side of SR 80
between Mission Lane and Lee Street. The pathway will replace informal paths and provide
access to the St. David School, Post Office and the community core area.
The study area has a number of wildlife trails areas, including trails in Kartchner Caverns State
Park and the Saint David Monastery on the San Pedro River. Historic transportation routes
within the study area have been identified by the Arizona State Parks Subcommittee on Historic
Trails. Northwest area residents also indicated that a number of equestrian trails and equestrian
easements exist in the study area.
2.4 EXISTING ENVIRONMENTAL CONDITIONS
An environmental evaluation identified natural, cultural, and physical resources located in the
study area. The purpose of this overview was to identify those resources or areas that would need
consideration in planning future transportation projects.
2.4.1 Local Natural Resource Features
The study area includes a number of natural resource features unique to Cochise County and
Arizona. These include:
• Kartchner Caverns State Park – Kartchner Caverns State Park is located within the
study area and is a major tourist destination. The Park has been preserved by the State
because it is a wet living cave. According to the Benson Economic Outlook 2008 Report,
the park had an average of over 180,000 visitors per year between 2003 and 2007.
• San Pedro River Valley – The San Pedro River is a unique riparian corridor originating
in Mexico and flowing from south to north through the study area. The San Pedro
corridor is home to numerous wildlife species, including 83 mammals, 43 reptiles and
over 380 bird species. The San Pedro is one of the last remaining nesting sites for the
southwestern willow flycatcher and western yellow billed cuckoo.
• U.S. Forest Service Whetstone Mountains – The Whetstone Mountains, located
adjacent to the study area, are a significant 45,000 acre resource for outdoor activities
including hunting, hiking, equestrian riding, mountain biking, wildlife viewing, and
backcountry touring. Additional population growth will increase demand for outdoor
recreation in the Mountains. Currently, there are no legal motorized public access routes
within the study area to the east or north side of the Whetstones.
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2.4.2 Wildlife Linkages
ADOT and its partners in the Arizona Wildlife Linkages Workgroup, has identified potential
wildlife linkage zones across Arizona utilizing local expertise, vehicle/wildlife collision records
(see Arizona’s Wildlife Linkages Assessment 2006), and other pertinent data. Identification and
mitigation of these potential linkage zones (PLZ) during the planning of transportation projects,
helps maintain the connectivity of wildlife populations and minimizes human injuries/property
damage and deaths from vehicle collisions. Three PLZs have been identified within the study
area and are described in Table 6.
Table 6 Potential Linkage Zones within Northwest Cochise County
Name
PLZ
Number
Area
(sq mi) Ecoregion(s)
Predominant Biotic
Community
Rincon – Whetstone –
Santa Rita1
94 263 Sky Island Semidesert grassland
Whetstone – San Pedro
River
97 46 Sky Island Semidesert grassland
Dragoon – San Pedro River 99 96 Sky Island Chihuahuan desertscrub
Semidesert grassland
1 The Rincon-Whetstone-Santa Rita corridor was identified as a Top Priority PLZ in the 2006 Arizona Wildlife Linkages
Assessment.
Sources: Arizona Department of Transportation 2008a, 2008b; Bailey 1995
Notes: AZ/NM = Arizona/New Mexico, I-17 = Interstate 17, PLZ = Potential Linkage Zone, SR = State Route
2.4.3 Conservation Areas
Conservation areas protect a small fraction of wildlife linkage zones and habitat in the study
area. Almost half of the land within the project study area is Arizona State Trust land, which
provides little or no long-term protection to special status species or their habitat. The San Pedro
Riparian National Conservation Area (RNCA) is approximately 57,000 acres and its primary
purpose “to protect and enhance the desert riparian ecosystem, a rare remnant of what was once
an extensive network of similar riparian systems throughout the American Southwest” (BLM
2008b).
2.4.4 Cultural Resources
Cultural resources include archaeological sites, historical buildings and structures, and places
that have significance for traditional groups with cultural affiliations with the study area.
Potential effects on cultural resources will need to be considered as future upgrades and
modifications of the state highway system in the study area are planned and implemented.
Cultural resource surveys have been completed along most of the three major highways in the
study area (I-10, SR 80 and SR 90). Twelve archaeological and historical resources have been
recorded along those highways and impacts on those sites would need to be addressed as part of
any future project. New roadway corridors would be required to obtain a cultural resource survey
as part of any preliminary design work. The San Pedro River corridor is known to have a high
density of archeological sites as well as a number of known and yet undiscovered burial grounds,
some of which are associated with Native American tribes historically affiliated with this area.
St. David cemetery, associated with the long-standing Church of Jesus Christ of Latter-Day
Saints community, is currently located immediately adjacent to SR 80 and could constrain future
widening of this highway in the future.
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2.5 STAKEHOLDER INPUT
ADOT and the Study Team met with northwest area stakeholders/community members
throughout the planning process to identify trends, visions and issues for Northwest Cochise
County. One of the goals was to define the transportation needs as seen from the community’s
perspective and to gain understanding of emerging trends, area characteristics, community and
investor plans, and local perspectives of how the study area might change and grow in the future.
Thirty in-depth and focused interviews were conducted with specific stakeholders during the
months of June, July, and August 2009. The stakeholders were selected by ADOT, the City of
Benson and Cochise County and were a representative sample of the land and business owners,
elected officials, transportation system operators, planners and public works managers, school
district officials, and emergency responders serving the study area. Based on these interviews
and community input, several predominate themes were recognized and are summarized below
and in Figure 6.
• The City would like to locate additional traffic signals on B-10 (4th Street) to better
manage traffic in the area, but this is counter to ADOT’s mandate to facilitate through
traffic. The City and business representatives are interested in the “Complete Streets”
approach to modernizing 4th Street.
• New residential development will likely take place first along I-10 starting at the Skyline
interchange and preceding east to the SR 90/I-10 interchange. This would include the
North Whetstone Ranch development.
• Address the safety issue related to the current practice of routing St. David school buses
in a manner that requires them to travel great distances in order to remain on paved roads.
This practice increases the daily trip lengths and the potential safety issues due to having
to enter and exit I-10.
• Develop an east/west connection between SR90 and SR80 through the center of the study
area. An alignment using Post Ranch Road was most often referenced.
• Locate an alternative route which parallels I-10 from SR90/I-10 interchange west to the
J-Six/Mescal interchange. This alternative is needed to address emergency responder
access needs for I-10 and to provide a bypass when I-10 is shut down due to an accident,
construction or other events.
• Upgrade and pave a second alternative route using Sybil Road, thereby providing
emergency vehicle access to I-10 from the I-10/Sibyl interchange and the I-10/Pomerene
interchange. This route would serve as a bypass when I-10 is closed.
• Consider a wildlife crossing for deer, antelope and other big game animals as future
improvements to I-10 are planned. The Arizona Game and Fish Department, in
cooperation with US Game and Fish, ADOT and other federal and state agencies,
designated a wildlife corridor between the Rincon and Whetstone Mountains. This
corridor passes between the J-Six/Mescal and the SR90 interchanges on I-10. Two
additional corridors have been identified but do not have detailed studies; Dragoon – San
Pedro River and Whetstone – San Pedro River. They should be noted for future planning
purposes.
• Desire to preserve riparian area, especially the San Pedro River corriodor.
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Figure 6 Stakeholder Identified General Themes
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3.0 FUTURE CONDITIONS
An analysis of future population and employment projections as well as future land use plans
provided an overview of inputs for long-range travel forecasting to support the development of
future year transportation improvements within Northwest Cochise County. This study effort
included population projections for 2020 and 2040, utilizing an annual growth rate of 2 percent
established though local guidance, and based on historical trends.
3.1 MODEL DEVELOPMENT
ADOT and Cochise County established a coordinated approach for the projection of future travel
demand in the study area. To ensure consistency between the Cochise County-wide Travel
Demand Model and the Northwest Cochise County Long-Range Transportation Plan, ADOT and
Cochise County agreed to coordinate the system configuration and socioeconomic data input and
share results of the output analyses.
3.1.1 Future Land Use
The City of Benson General Plan (2002) and the Cochise County Comprehensive Plan (2006)
were reviewed to understand future land use trends within the study area. The City of Benson
General Plan provided the most detailed land use guide, whereas the County Comprehensive
Plan indicates general growth areas and planning areas. The City of Benson General Plan
identifies an extensive planning area, encompassing a large area south of I-10 along SR 90. Most
of the land within the Benson planning boundary is zoned as low density residential. Along
SR 90 more intense uses are envisioned including a commercial core near I-10 and the Benson
Airport and mixed use on either side of SR 90 to the south. The Benson General Plan also shows
growth to the south of the established parts of the city, with a mixture of medium density
residential and commercial uses.
The Cochise County Comprehensive Plan identifies a number of growth areas within the
Northwest study area. The Comprehensive Plan establishes four growth area categories which
include:
• Category A (Intensive Growth) Areas;
• Category B (Urban Growth) Areas;
• Category C (Rural Growth) Areas; and
• Category D (Rural) Areas.
Commercial growth is focused within the City of Benson. The Benson General Plan identifies
three major commercial centers, downtown Benson, the I-10 and SR 90 interchange area, and
north of I-10 along Ocotillo Road as prospective commercial development sites. Downtown
Benson is the traditional commercial center of the northwest region. The I-10/SR 90 interchange
area has been a recent commercial growth area, with the development of new hotels, restaurants
and service stations.
Figure 7 shows the future land use plan as identified in the City of Benson General Plan. It
should be noted that areas outside the City of Benson limits shown as Low Density Residential
(LDR) are identified in the County Comprehensive Plan as Rural.
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Figure 7 Future Land Use Plan
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3.1.2 Future Socioeconomic Projections
Future year forecasts were developed for population and employment for year 2020 and 2040 as
part of the county-wide model effort. Growth rates were applied to current year (2007) data to
derive the future year estimates. The growth rates were developed using DOC population
estimates and historical growth patterns.
According to the Census 2000 block data, the population for the study area was approximately
10,166 people in 2000. The current (2007) population for the study area is estimated at 12,043
people. This calculates to an actual growth rate from 2000 to 2007 of about 2.8 percent annually
for the study area. The TAC identified 2 percent as the preferred growth rate for use in this study.
This growth rate is consistent with historical growth rates observed for Cochise County.
Table 7 identifies growth projections for the total number of households, employment, and
population for the study area for 2020 and 2040. Population projections assumed 2.3 persons per
household, which is consistent with study area census data. The population within the study area
is projected to double between 2007 and 2040, from about 12,000 to over 24,000 people
(assuming a steady 2 percent annual growth rate). Employment is expected to grow at a similar
rate, and remain at a consistent ratio of about three residents per employee, growing from almost
4,000 employees in 2007 to just under 10,000 employees by 2040.
Table 7 Future Year Growth Projections
Year Households Employment Population*
2007 5,236 3,917 12,043
2020 7,133 5,376 16,406
2040 10,600 9,691 24,380
*Population projection assumes 2.3 people per household
Household and employment numbers were distributed throughout the study area. The
distributions of these forecasts are based on City of Benson and Cochise County land use plans
and local knowledge of development patterns with input from the TAC. The county and city
provided detailed feedback on the distribution of 2040 households. Similar distributions were
assumed for 2020 based on the concept that current future land use plans and growth patterns for
2020 will continue for this area into 2040. The county and city also provided some specific
locations that would develop more rapidly than others as well as identified areas with known
constraints to higher density growth. These distributions were checked against the 2007 existing
data, future land use plans and the 2 percent growth rate control totals to ensure reasonable
patterns. Growth is expected to be primarily within and adjacent to the City of Benson. The
SR 90 corridor is also a projected growth area with new growth starting near the I-10 interchange
and progressing south.
Figure 8 and Figure 9 show estimated population and employment density for years 2020 and
2040, respectively.
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Figure 8 Estimated Future Population Density (2020, 2040)
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Figure 9 Estimated Future Employment Density (2020, 2040)
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4.0 ALTERNATIVES DEVELOPMENT
The alternative development process was based on findings from the review of existing
conditions, stakeholder interviews and public meetings. A 2020 alternative and three 2040
alternatives were developed to respond to the goals and objectives for this project, specific
comments from stakeholders and the public and deficiencies identified through the no-build
travel demand modeling.
4.1 GOALS AND OBJECTIVES
Goals and objectives were developed during the project process based on feedback from
stakeholders, through the interviews conducted early-on in the project, direction from the TAC
and from comments received during public meetings. These goals and objectives served to guide
development of alternatives.
Goal A: Develop a safe and efficient roadway network to accommodate future traffic
demands. The objectives to achieve this goal include:
• Maintain efficient traffic flow on SR 90, SR 80, and I-10.
• Develop additional east/west roadway connections.
• Improve traffic flow and safety through downtown Benson.
• Improve circulation at traffic interchanges with I-10.
Goal B: Improve conditions for bicycling and walking within the Northwest Cochise County
study area. The objectives to achieve this goal include:
• Create a network of bicycle facilities that includes bicycle lanes, routes and paths.
• Identify critical gaps in the sidewalk system to program improvements.
• Identify opportunities to create pedestrian connections to trails, parks or schools.
Goal C: Create more travel choices within the region through the enhancement or
implementation of transit services. The objectives to achieve this goal include:
• Maintain the existing level of para-transit service within the region.
• Identify a structure for initiating a local transit service serving the region.
Goal D: Develop a transportation system that evaluates impacts to environmentally sensitive
areas and special status wildlife species, and as necessary incorporate mitigation
measures. The objectives to achieve this goal include:
• Include accommodations for wildlife crossings at appropriate locations when
roadway improvements occur.
• Identify and mitigate potential impacts to the San Pedro River when developing
roadway or other circulation infrastructure plans.
• Initiate research early in the planning process to refine the location of wildlife
corridors in the Northwest Cochise County planning area.
• Identify and obtain funding to support the wildlife corridor research.
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Goal E: Support economic development through the development of the transportation
system. The objectives to achieve this goal include:
• Develop concepts for improving 4th Street/Business 10 through downtown
Benson to create a more attractive corridor for visitors and businesses.
• Identify locations where future commercial development will be located along
I-10, SR 90 and SR 80 to understand and address access requirements.
4.2 NO-BUILD ALTERNATIVE
In addition to the goals and objectives, the development of alternatives was structured to respond
to deficiencies identified under no-build conditions. This assumes that the current roadway,
transit and non-motorized conditions that exist today persist into the future. This provides a
baseline of how the system would operate given the expected population and employment
growth, if no improvements were made to the transportation system.
In 2020, the no-build analysis indicates capacity issues on SR 90 just south of I-10, SR 80 south
of Benson, and on B-10/4th Street within Benson (B-10/4th Street was modeled as a continuous 4
lane roadway, even though in certain sections within downtown Benson B-10/4th Street is a 3 or
2 lane configuration). By 2040, under no-build conditions capacity issues are more widespread
with deficiencies further south on SR 90, worsening LOS on SR 80, deficiencies on I-10 between
the J-Six/Mescal interchange and the B-10/4th Street interchange, and poor LOS on Ocotillo
Road and J-Six/Mescal Road.
Table 8 shows the mileage by LOS for both 2020 and 2040. In 2020, 96 percent of the study area
roadway mileage is LOS C or better. In comparison by 2040 only 87 percent of the study area
mileage is LOS C or better.
Table 8 Level of Service Distribution by Mileage in Study Area
LOS
2020
Mileage
(miles)
2020
Percentage
2040
Mileage
(miles)
2040
Percentage
Change in
Miles from
2020 to 2040
Percent
Change from
2020 to 2040
A 129 67% 79 41% -50 -26%
B 46 24% 50 26% 4 2%
C 11 5% 38 20% 27 14%
D 5 3% 15 8% 10 5%
E 1 <1% 3 2% 2 1%
F 0 0% 7 3% 7 3%
Total 192 100% 192 100%
The 2009 City of Benson Transit Feasibility Review and Implementation Plan indicated that
current dial-a-ride transit service (the only current transit service available in the study area),
provides about 7,600 annual rides and is not meeting the total potential transit need. The 2009
study estimated a potential need of around 27,000 rides, more than three times the current level
of transit service. Under no-build conditions this unmet transit need will persist and likely grow
worse as population and employment grow.
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Non-motorized travel conditions are currently limited within the study area, and would continue
to be limited under a no-build alternative.
4.3 BUILD ALTERNATIVES CONSIDERED
Based on the findings from the no-build alternative analysis, as well as the guidance of the goals
and objectives, one 2020 alternative and three 2040 transportation alternatives (A, B, and C)
were developed. The 2020 alternative addressed mid-term needs, with projects focused primarily
on adding capacity to the state system. The 2040 alternatives were structured to address long-term
needs and test a combination of roadway widening projects as well as developing new
roadways. The distinguishing features of the alternatives were as follows:
2020 Alternative: The 2020 alternative is structured to address roadway deficiencies as
identified in the no-build analysis and includes three road widening projects along SR 80, SR 90
and B-10/4th Street. This alternative includes the implementation of transit service within the
City of Benson. Non-motorized improvements would be included as part of the roadway
projects.
2040 Alternative A: This 2040 alternative adds capacity to most state highways in the study
area and includes the development of a new east/west county roadway between the
J-Six/Mescal area and Benson. Includes the implementation of regional transit service serving
the study area, and also integrates non-motorized improvements into roadway projects.
2040 Alternative B: This 2040 alternative adds capacity to most state highways in the study area
and the development of a new Traffic Interchange (TI) to replace the Skyline TI with two new
one-way frontage roads providing local access. Alternative B also includes a new roadway
connection between St. David and I-10, and upgrading Post Ranch Road to a paved two-lane
roadway between SR 90 and SR 80. Includes the implementation of regional transit service
serving the study area, and also integrates non-motorized improvements into roadway projects
while recommending expansion of the trail system.
2040 Alternative C: Adds capacity to most state highways in the study area and the develop-ment
of a new TI to replace the Skyline TI with a new two-lane frontage road providing local
access. Alternative C also includes a new roadway connection between St. David and I-10 and
upgrading Post Ranch Road to a paved two-lane roadway between SR 90 and SR 80. Includes
the implementation of regional transit service serving the study area, and also integrates non-motorized
improvements into roadway projects while recommending expansion of the trail
system.
Table 9 summarizes the elements of each of the alternatives, including proposed roadway, transit
and non-motorized projects.
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Table 9 Future Alternatives Considered Summary
Alternative Project Location
Length
(approx) Improvement
SR 80 B-10/SR 80 split in Benson to south to Judd
Road (approximately MP 293 to MP 303.5)
10 miles Widen to 4 lanes
SR 90 I-10/SR 90 TI south to Whetstone Ranch
Road (approximately MP 289 to MP 293)
3 miles Widen to 6 lanes
B-10/4th St. Ocotillo Road to the SR 80 split in Benson 0.9 miles Widen to 6 lanes
Mescal
Road
North of the J-Six/Mescal I-10 traffic
interchange
1 mile Widen to 4 lanes
Transit Deviated fixed route service within Benson
and continue the dial-a-ride service
N/A N/A
2020
Non-
Motorized
Include bicycle and pedestrian facilities as
part of the roadway projects
N/A N/A
E/W
Connector
Mescal Road to B-10/4th Street north of I-10 6 miles New 2-lane road
SR 90
Extension
I-10 to new E/W Connector 1 miles New 4-lane road
I-10 Cochise/Pima County line to B-10/4th Street
Exit (approximately MP 296 to MP 303)
7 miles Widen to 6 lanes
SR 90 Whetstone Ranch Road to study area
boundary (approximately MP 293 to 301)
8 miles Widen to 6 lanes
SR 80 Judd Road to study area boundary
(approximately MP 303.5 to MP 308)
4.8 miles Widen to 4 lanes
B-10/4th
Street
I-10 to Ocotillo Road 1.2 miles Widen to 6 lanes
Ocotillo
Road
North of I-10 to B-10/4th Street 1.3 Widen to 4 lanes
Transit Expand deviated fixed route service to region
and continue the dial-a-ride service
N/A N/A
2040 A
Non-
Motorized
Include bicycle and pedestrian facilities as
part of the roadway projects
N/A N/A
Skyline
Road TI
Remove existing Skyline TI and replace
(between MP 298 and MP 299)
N/A New TI
North
Frontage Rd
J-Six/Mescal to SR 90 (one-way road) 5 miles New 1-lane frontage
road
South
Frontage Rd
J-Six/Mescal to SR 90 (one-way road) 5 miles New 1-lane frontage
road
St. David
Connector
From SR 80 near Dragoon Vista Road north
to I-10 at the Sibyl Road TI
7 miles New 2-lane road and
UPRR crossing
Post Ranch
Road
Connection between SR 90 (MP 294) and
SR 80 (MP 296)
4 miles Improve to paved
2-lane road
Transit Expand deviated fixed route service to region
and continue the dial-a-ride service
N/A N/A
2040 B
Non-
Motorized
Include bicycle and pedestrian facilities as
part of the roadway projects, expand trail
system
N/A N/A
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Alternative Project Location
Length
(approx) Improvement
Skyline
Road TI
Remove existing Skyline TI and replace
(between MP 298 and MP 299)
N/A New TI
Frontage
Road
J-Six/Mescal to SR 90 5 miles New 2-lane frontage
road
St. David
Connector
From SR 80 near Dragoon Vista Road north
to I-10 at the Sibyl Road TI
7 miles New 2-lane road and
UPRR crossing
Post Ranch
Road
Connection between SR 90 (MP 294) and
SR 80 (MP 296)
4 miles Improve to paved
2-lane road
Transit Expand deviated fixed route service to region
and continue the dial-a-ride service
N/A N/A
2040 C
Non-
Motorized
Include bicycle and pedestrian facilities as
part of the roadway projects, expand trail
system
N/A N/A
4.4 EVALUATION OF POTENTIAL ALTERNATIVES
The evaluation criteria to assess these alternatives were developed to provide an objective and
structured approach to screening a range of alternatives to identify a preferred improvement
strategy.
Each alternative was evaluated based on a set of criteria which relate to the goals and objectives
of this study. Each conceptual alternative was compared against one another using qualitative
evaluation criteria to determine which of the alternatives performed favorably based on certain
issues. A ranking of “Good,” “Fair” and “Poor” was used to indicate the relative performance of
the alternative to the specific criterion.
The criteria that were selected for the evaluation of project alternatives include:
• Traffic Safety Impacts;
• Traffic Congestion/Operations;
• Non-Motorized Improvements;
• Natural, Physical, and Cultural Resources;
• Consistency with Local Plans;
• Cost and Funding Potential.
4.5 SUMMARY OF RESULTS
The evaluation analysis showed that the 2020 alternative provides near term improvements to
improve the roadway system to LOS C or better throughout the study area. The evaluation
analysis for the 2040 alternatives generally favors Alternatives B and C, with the new service
interchange on I-10 and additional regional connectivity with the St. David connector and
improving Post Ranch Road between SR 90 and SR 80. Alternatives B and C also are more
effective in improving traffic congestion, include non-motorized improvements and are more in
line with the communities desires. The main difference between Alternative B and C is the
configuration of the frontage roads along I-10. The configuration under Alternative C, which is
the two-lane frontage road north of I-10, appears to function better than two one way frontage
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roads on either side of I-10. The two-lane frontage road is similar in many ways to the proposed
east/west roadway in Alternative A.
Table 10 provides the results of the evaluation of each of the four alternatives based on the
screening criteria and analysis.
Table 10 Alternatives Evaluation Analysis Summary
ALTERNATIVES
EVALUATION CRITERIA 2020 2040 A 2040 B 2040 C
Safety
Safety related projects ○ ◑ ◑ ◑
Traffic calming measures ○ ◑ ◑ ◑
Access management elements ○ ◑ ◑ ◑
Traffic Congestion/Operations
Provides additional capacity ● ● ● ●
Regional connectivity ○ ◑ ● ●
Transit improvements ◑ ● ● ●
Non-motorized Improvements
Includes pedestrian projects ○ ○ ◑ ◑
Includes bicycle facilities ○ ○ ◑ ◑
Integrates non-motorized facilities ◑ ● ● ●
Impacts to the San Pedro River, Wildlife Connectivity, and Right-of-Ways
Impacts to the San Pedro River ○ ◑ ◑ ◑
Impacts to wildlife connectivity ● ○ ◑ ◑
Right of Way impacts ◑ ○ ◑ ◑
Consistency with Local Plans
City of Benson ● ○ ● ●
Cochise County ● ○ ● ●
Cost and Funding Potential
Capital cost ◑ ○ ◑ ◑
Funding availability ◑ ○ ○ ○
Legend:
○ – Poor
◑ – Fair
● – Good
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5.0 RECOMMENDED LONG-RANGE PLAN
The recommended long range plan for Northwest Cochise County includes projects to address
future deficiencies on the state highway system, projects to provide better connectivity within the
study area, projects to improve access to transit service and strategies to improve travel
conditions for non-motorized modes. The implementation of this plan should consider impacts to
the natural and physical environment by addressing potential impacts early during project
development.
The recommended projects for 2020 are as detailed in section 4.3 and include adding capacity on
heavily used state highways, integrating bicycle and pedestrian features within those improve-ments,
and implementing expanded transit service within the City of Benson. The final
recommended 2040 plan is a hybrid of the three alternatives, with elements of each that worked
best to satisfy the long range transportation needs for the study area.
The recommended improvement plan is detailed in Table 11 and shown in Figure 10. Figure 11
shows the predicted 2040 level of service based on the recommended long range plan.
5.1 ROADWAY
Recommended roadway improvements include adding capacity to the region’s main corridors
and adding additional local connectivity. The recommended roadway improvements include:
• Widening I-10, SR 90, SR 80
• Widening Mescal Road and Ocotillo Road
• Improving Post Ranch Road between SR 90 and SR 80
• Creating a new road connecting I-10 and SR 80 in the St. David area
• Replacing the Skyline traffic interchange on I-10
• Creating a new frontage road system along I-10 to connect from the J-Six/Mescal area to
the new Skyline TI and to SR 90
• Improve B-10/4th Street through the City of Benson as a 4 lane facility with access
management techniques such as dedicated turn lanes, installation of a landscaped median
to control turning movements, and possibly consolidating driveways to reduce conflicts
The estimated timeframe and cost of these improvements are shown in Table 11.
5.2 TRANSIT
The 2009 City of Benson Transit Feasibility Review and Implementation Plan showed a clear
existing need for additional transit within the Northwest Cochise County study area. At a
minimum, it is recommended that the transit service detailed in that plan would be implemented
by 2020 to provide deviated fixed route service within Benson. The plan also describes a
regional service option that would serve the entire study area including the J-Six/Mescal area,
Pomerene and St. David. Given expected population growth, and the projected aging population,
the area will need this type of regional service by 2040, if not before. The City of Benson is
currently working on the establishment of a fixed route system that would service Benson,
Pomerene, J-Six/Mescal, and St. David.
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5.3 NON-MOTORIZED
Integrating bicycle and pedestrian facilities into roadway projects is a cost-effective way to add
facilities. The recommendation from this study is to integrate bicycle and walking into any future
roadway project. For rural roadways this would include providing wide paved shoulders
(minimum of 4 feet), whereas within more urban settings like Benson, this would include adding
bike lanes and sidewalks. The implementation of a comprehensive trail system within the study
area is desired by the community; a yearly program to add trails, paths and bike lanes is
recommended. Equestrian crossings and trails are also desired by the community and should be
considered when developing future roadway corridors. Additionally it is recommended that the
City of Benson and Cochise County partner with the Cochise Trails Association to develop a
comprehensive trails plan for the area, which would identify corridors and priorities.
5.4 ACCESS MANAGEMENT AND SAFETY
Within the study area there are a number of safety or access management improvements that are
needed within the next ten years. Examples of these types of projects include improvements to
the J-Six/Mescal traffic interchange with I-10, sight distance improvements to Meadowlark Lane
and traffic control on B10/4th Street. B10/4th Street is currently a mixture of a four lane and two
lane configurations through Benson. It is recommended that ADOT and the City of Benson
study the implementation of access management techniques on B10/4th Street to improve traffic
flow and handle future capacity issues. This could include intersection improvement such as
dedicated turn lanes, installation of a landscaped median to control turning movements, and
possibly consolidating driveways to reduce conflicts. Access management techniques have been
shown to be effective in improving safety and capacity on corridors similar to B10/4th Street.
5.5 THE NATURAL AND PHYSICAL ENVIRONMENT
It is recommended to initiate research to refine the locations of the three known wildlife
corridors in the study area, and provide recommendations for crossing structures that minimize
vehicle/wildlife collisions, prior to the development of new roadway projects. Impacts to the
natural and physical environment should be considered in the implementation of this plan
including:
• Minimizing and mitigating negative impacts to the San Pedro River;
• Minimizing and mitigating negative impacts on wildlife utilizing the three wildlife
corridors in the study area; and
• Implementing corridor research to help refine the boundaries of the three known wildlife
corridors in the study area, and provide recommendations for crossing structures that
minimize vehicle/wildlife collisions.
5.6 FINANCIAL CONSTRAINTS
The cost estimates shown below in Table 14 are not financially constrained. Annualized over the
time frame of this study, implementation of the proposed projects would cost an estimated $5 to
$10 million per year for 30 years. Most of the recommended projects are on the state highway
system, and would require state or federal funding. Surface Transportation Program (STP)
funding is available for state, local and county jurisdictions on any Federal-aid highway, bridge
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project, public road, transit capital project, and bus terminals and facilities. STP funding is
distributed to Metropolitan Planning Organizations (MPOs) and Councils of Governments
(COGs) on an annual basis. Cochise County must compete for its share of STP funding through
the Southeastern Arizona Governments Organization (SEAGO) during its annual programming
of STP funding.
Local transportation projects for Cochise County of the City of Benson rely heavily on the
Highway User Revenue Fund (HURF). In 2009 Cochise County received $7.7 million in HURF
funds, and the City of Benson received $351,255 of HURF funds (it should be noted that while
the study area includes the entire City of Benson it only reflects 3.7 percent of the Cochise
County area of roadway infrastructure responsibility). The local projects recommend are
estimated to cost in the range of $19 to $25 million. Annualized this would be $650,000 to
$833,000 per year to implement over the 30-year time frame.
5.7 NEXT STEPS
Implementation of this plan requires a number of near term and long term steps. In the near
term, ADOT has identified the need to study a number of the state highway corridors including
SR 80, SR 90 and I-10. A Design Concept Report (DCR) for I-10 from Tucson to SR 90 was
started in August 2010. This DCR was originally scoped as covering the stretch of I-10 from I-
19 to the Empiritia TI but FHWA and ADOT agreed to extend the extent of the DCR to SR90
based in part on the preliminary recommendations of this study.
To further the recommendations of this study Cochise County and the City of Benson will work
to incorporate the findings and recommendations into the following:
• Cochise County Roads and Streets Map
• The Cochise County Comprehensive Plan
• City of Benson General Plan
It will also be important to prioritize and develop phasing for projects while looking for
opportunities to implement high priority projects. Corridor Studies and roadway assessments
will be needed to refine and finalize future alignments for new roads. The final recommended
2020 and 2040 long-range plan focuses on the major capacity projects to meet needs into the
future. Roadway improvements in the Northwest Area will also include improvements already
funded, such as the SR90 interchange and Dark Star re-alignment as well as safety and
enhancement projects, such as improving the J-Six/Mescal Traffic Interchange intersection and
reconstructing B-10/4th through Benson. Routine replacement and upgrades of signing and
striping include the replacement of virtually all of the warning and regulatory sign faces for
improved visibility at night in the next few years.
As growth occurs over time, local connections to serve new commercial and residential areas are
likely to be developed. Two such connections could be an extension of SR90 northbound
towards the Benson Airport area and from Sybil in the St. David area northbound towards
Airport Rd roughly along the Lonesome Rd. alignment. On-going maintenance as well as
roadway surface treatments will also continue to play a significant role in meeting the
transportation needs of the northwest area into the future.
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Table 11 Recommended Improvement Plan
2020 Improvement Plan Location
Length
(approx.)
Cost Range
(Rounded)
2020 State Projects
Widen SR 80 to 4 lanes, with
bicycle and pedestrian
improvements integrated
B-10/SR 80 split in Benson to Judd
Road (approximately MP 293 to
MP 303.5)
10 miles $30m - $50m
Widen SR 90 to 6 lanes, with
bicycle and pedestrian
improvements integrated
I-10/SR 90 TI to Post Ranch Road
(approximately MP 289 to MP 294)
4 miles $8m - $12m
Implement access management
improvements to B-10/4th Street
and reconstruct roadway with
4 lanes.
I-10 to the SR 80 split 2 miles $1.5m - $2m
2020 State Improvements Total $39.5m - $64m
2020 Local Projects
Widen Mescal Road to 4 lanes North of the J-Six/Mescal I-10
traffic interchange
1 mile $3m - $5m
Fixed Transit Service Serving City of Benson N/A $275k
2020 Local Improvements Total $3.2m - $5.2m
2040 Improvement Plan Location
Length
(approx.)
Cost Range
(Rounded)
2040 State Projects
New I-10 service interchange to
replace the existing Skyline TI
Remove existing Skyline TI and
replace (between MP 298 and
MP 299)
N/A $20m - $30m
New 2 lane frontage road north of
I-10, with bicycle improvements
J-Six/Mescal to SR 90 (two way
road)
5 miles $10m - $25m
Widen I-10 to 6 lanes Cochise/Pima County line to B-10/
4th Exit (approximately MP 296 to
MP 303)
7 miles $70m - $140m
2040 State Improvements Total $100m - $195m
2040 Local Projects
New 2 lane road connecting to I-10
and UPRR crossing
From SR 80 near Dragoon Vista
north to I-10 at the Sibyl TI
7 miles $9m - $11m
Improve Post Ranch Road to paved
2 lane road
Connection between SR 90
(MP 294) and SR 80 (MP 296)
4 miles $2.5m - $3.5m
Widen Ocotillo Road to 4 lanes,
with integrated bicycle and
pedestrian improvements
North of I-10 to B-10/4th Street 1.3 miles $6.5m - $9m
Fixed Transit Service Expanded regional service N/A $415k
Expanded bicycle system Yearly program to add facilities 3-5 miles/year $250k - $500k
2040 Local Improvements Total $18.6m - $24.4m
2020 Total $42m - $69m
2040 Total $119m - $220m
Total Improvement Plan $161m - $289m
Source: URS, 2010
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Figure 10 Final Recommended Northwest Area 2040 Map
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Figure 11 Level of Service Results for the Final Recommended Alternative