the case for cancelling the midcounty highway extended (m-83) and Investing in More Effective and Sustainable Alternatives

Coalition for Smarter Growth DC • MD • VA

contents Introduction ....................................................................................... 3 What we could build ........................................................................... 5 Our M-83 transit composite alternative ......................................... 5 Alternative 2 TDM/TSM ............................................................ 5 Alternative 5 .............................................................................. 8 355 North bus rapid transit (BRT) ........................................... 10 MARC service upgrades .......................................................... 10 M-83 Alternative 9A- master plan alignment ................................ 11 How much will it cost? ................................................................. 11 Upcounty transportation needs and goals ....................................... 15 Goal 1: Reduce existing and future congestion ............................ 15 Goal 2: Improve vehicular safety .................................................. 19 Goal 3: Enhance network efficiency and connections ................. 20 Goal 4: Accommodate planned land use and future growth ....... 24 Goal 5: Facilitate bicycle and pedestrian connections ................. 28 Goal 6: Enhance homeland security ............................................. 29 Goal 7: Improve quality of life ....................................................... 30 Recommendations and conclusion .................................................. 37

Written by Kelly Blynn and Stewart Schwartz Coalition for Smarter Growth in collaboration with TAME Opposite page: Montgomery Village, in Upcounty Montgomery, Image by Bossi on Flickr. Cover image: Wildflowers at Lake Needlewood by Mr T in DC on Flickr.

Introduction

O

ver 60 years ago, planners first drew a line on the master plan for a proposed six mile highway connecting Montgomery County’s Clarksburg to Gaithersburg, east of Route 355. Conceived amid early dreams of auto travel and prior to the nation’s environmental laws, the Midcounty Highway Extended, also known as M-83, would travel through stream valleys, wetlands, and parts of Montgomery County’s Agricultural Reserve. It would also fail to address the transportation needs of existing and future residents and employers.

As the new MCDOT study gets under way, our report analyzes how the M-83 master plan alignment compares to a transit-based alternative in meeting the transportation needs of Upcounty residents, and the costs and benefits of those alternatives. As far back as the 1960s, Montgomery County’s general plan called for moving away from a reliance on automobiles. Forward-thinking planners envisioned a series of transit-oriented communities along the I-270/355 corridor in Gaithersburg, Germantown, and Clarksburg to fulfill that goal.

Montgomery County Department of Transportation’s (MCDOT) Midcounty Corridor Study, has spanned 11 years, faced sustained opposition from county residents, and raised serious concerns from environmental resource agencies. A majority of the current Montgomery County Council opposes the highway, and demanded that MCDOT complete and release the study.

Yet today, north of Shady Grove, residents of these communities still lack access to frequent, all-day, high quality transit service. Fortunately, the county’s recentlyadopted plan for bus rapid transit, including the 355 corridor, offers a real opportunity to provide effective, efficient transit service to Upcounty residents, and forms the core of the alternative to M-83.

When MCDOT finally released the study in the spring of 2015 – formally dubbed the Draft Preferred Alternative/ Conceptual Mitigation Report -- it recommended the original 1964 master plan alignment (Alternative 9A), with modifications at the northern terminus, as the preferred alternative, with an estimated cost to the county of $357 million, not counting environmental mitigation and other ancillary costs.

A transit-based combination of alternatives, including local road, pedestrian, and bicycle connections, and demand management approaches, would provide improved transportation options to more people of all incomes and be more environmentally sustainable than building the highway. In a time of limited resources, we can implement this transit-based alternative at a similar cost to building M-83, and with far greater co-benefits for communities and the environment.

But now, due to a combination of council pressure and new leadership at MCDOT, the agency has stepped back from its own recommendation and initiated a study of a transit alternative. Opposite page: MD-124 -- part of the existing M-83 highway that has been built in Gaithersburg. Image by Bossi on Flickr.

What follows is an overview of the proposed alternatives and their costs, and an assessment of how the alternatives meet the original expressed purpose and need for the corridor and the needs of Upcounty residents.

The Case for Cancelling the Midcounty Highway Extended (M-83) | 3

what we could build

I

n May 2015, the Montgomery County Department of Transportation (MCDOT) indicated that it would study a combination of alternatives to the M-83 highway, including Alternatives 2 and 5, with the addition of bus rapid transit on Route 355.

on 355, and MARC improvements with MCDOT’s proposed Alternative 9A, the master plan alignment for the M-83 highway.

These particular alternatives have been supported for some time by the Montgomery County Department of Planning staff, the Environmental Protection Agency (EPA), and the TAME Coalition, which includes civic associations, conservation groups, and individuals. In some combination, these alternatives appear to offer the most effective approach to addressing Upcounty transportation needs.

The option preferred by the Coalition for Smarter Growth, EPA, TAME Coalition, and Montgomery County Department of Planning staff is a combination of previously-studied Alternatives 2 and 5, with improvements to transit service.

Therefore, this report compares and contrasts a combination of Alternatives 2 and 5, bus rapid transit

Our M-83 transit composite alternative

Alternative 2: Travel Demand Management/ Transportation System Management MCDOT’s Alternative 2 includes minor changes, such as additional turn lanes and signal timing at intersections

Above: Great Seneca Creek tributaries like this one are threatened by plans to build M-83. Image by Gleb Tulukin on Flickr. Opposite page: Colorado MAX bus rapid transit in Ft. Collins, CO.

The Case for Cancelling the Midcounty Highway Extended (M-83) | 5

Map of Alternative 2 (part of our composite alternative): Travel Demand Management / Transportation System Management from MCDOT.

within the existing right-of-way to improve car traffic flow. It does not include either a focus on pedestrian and bicycle accessibility or a robust Travel Demand

6 | Coalition for Smarter Growth

Management (TDM) program (an approach that utilizes marketing techniques, incentives, and other policies to encourage use of transit, rideshare, bicycling, walking and telecommuting). As a result, MCDOT’s 2015 update to the Midcounty Corridor Study of the proposed

Map of Alternative 5 (part of our composite alternative): Widenings and rights-of-way from MCDOT.

highway, states that Alternative 2 “would not promote increased transit ridership or decreased automobile travel”.1 MCDOT’s new transit alternative study should analyze

a more robust Alternative 2 that includes bicycle and pedestrian infrastructure and TDM best practices, which in combination with transit investment will reduce vehicle trips and vehicle miles traveled.

The Case for Cancelling the Midcounty Highway Extended (M-83) | 7

Alternative 5: MD355 with Service Roads Alternative 5 includes widening of existing roadways to six lanes along a 5.5 mile corridor comprising 355, MD27/Ridge Road, and MD124/Montgomery Village Avenue, and increasing access control via the use of service lanes in some locations along 355. However, today each roadway is already six lanes, so this alternative primarily adds right-of-way at intersections for turn lanes and increases access control. In the upcoming transit study, MCDOT should consider whether the right-of-way contemplated for

service roads could instead be utilized for dedicated transit lanes, as Rockville has decided for its longplanned service roads along Rockville Pike. Note: the Midcounty Corridor Study assumed as a baseline several road projects included in the Montgomery County Master Plan of Highways, including a widening of MD27/Ridge Road from Brink Road to Snowden Farm Parkway.

Integrated terminal station in Clarksburg Currently, the Corridor Cities Transitway (CCT), a proposed BRT route connecting areas west of I-270 to the Shady Grove Metro station, is slated to cross back to the east side of I-270 and end at COMSAT, while the 355 BRT is slated to end at Redgrave Place. With planning at preliminary stages for the 355 North BRT, there’s an important opportunity to work with the Clarksburg community to envision a terminal station in the best location to link these two transit lines, and possibly combine planned community amenities with high quality transit service. Snohomish County, WA’s award-winning Everett Station Everett Station in Sonomish Co, WA. Image by Sounder Bruce on Flickr. -- an end-of-line BRT station -- connects the Swift BRT, local buses, and commuter rail, and includes a park and ride, a waiting area, public meeting space and classrooms, office space for social service organizations and local businesses, and a café .2 The integration of the Silver Spring Library with a Purple Line station is a local example of combining transit service with a community amenity. Something similar to these examples could be done in Clarksburg. The 1994 Master Plan for Clarksburg’s Town Center includes a transit center, which could connect the two BRT routes, local buses and commuter buses, with a commuter bike station, park and ride, library and community center.

8 | Coalition for Smarter Growth

Map of proposed route for 355 North BRT Corridor (part of our composite alternative)

The Case for Cancelling the Midcounty Highway Extended (M-83) | 9

355 North Bus Rapid Transit In 2013, the Montgomery County Council approved an 81-mile bus rapid transit (BRT) network as part of the Countywide Transit Corridors Functional Master Plan. 355 North is one of the BRT plan’s approved corridors. It is a 14.1-mile BRT route servicing 20 stations between Redgrave Place in Clarksburg and the Rockville Metro station, in dedicated lanes the entire way except for north of Shakespeare Boulevard. In Rockville, it will connect to the 355 South BRT corridor, which will service stations all the way to Bethesda. It isn’t yet clear whether one or multiple routes will service the entire corridor.

In early 2015, the Maryland State Highway Administration began a more in-depth study of the 355 North Corridor, aided by a Corridor Advisory Committee made up of residents and businesses in the study area. MARC service upgrades BRT can serve the many employment centers along 355 in Germantown, Gaithersburg, Rockville, and south. But MARC commuter rail service is another important option for commuters, including those living in Frederick County, looking to reach these destinations, Silver Spring, and downtown DC. Unfortunately, MARC runs infrequently and is limited

Plan for the relocated Boyds MARC station courtesy of the Boyds Civic Association.

10 | Coalition for Smarter Growth

to inbound service in the morning and outbound in the evening. A 2007 state plan called for investing in segments of third track to allow for more service on the line, eventually reaching all-day two-way service. MARC upgrades, which Montgomery County has included in their state transportation priority letter, would be a state investment. Relocated Boyds MARC station The Boyds Civic Association has proposed a plan for a relocated and expanded MARC station with connecting RideOn bus service just a few miles from Clarksburg. It includes potential for additional parking spaces and a bus bay, offering the opportunity to provide more transportation choices for Clarksburg and other Upcounty residents.

M-83 Alternative 9A - master plan alignment Alternative 9A is the alternative selected by the Montgomery County Department of Transportation (MCDOT) in their Draft Preferred Alternative report released in March of 2015. If built, Alternative 9A would be a 4-6 lane, 5.7 mile divided highway connecting the future intersection of Snowden Farm Parkway/Ridge Road at the north end to the northern terminus of the existing section of Midcounty Highway. Because Alternative 9A would run along and across several floodplains, wetlands, creeks, forested areas, and parks, highway planners propose extensive bridges (up to 500’ in length) to try to minimize wetlands impacts. Environmental organizations are concerned that construction of the bridges and the shading effects and runoff from the roadbeds will nonetheless extensively damage fragile water resources and natural areas that the highway would cross. The highway would also impact adjacent neighborhoods, a retreat center, and the Montgomery County Agricultural Reserve.

MCDOT’s primary justification for building Alternative 9A is to provide an alternative to congested I-270. MCDOT’s 2013 Draft Environmental Effects Report (DEER) states, “Because traffic on I-270 is projected to increase by 46% between 2011 and 2030, the ability to avoid I-270 for a portion of the commute is a substantial benefit of Alternatives 8 and 9.”3 But in reality, traffic levels in the county have been flat or declining, and the proposed M-83 alignment doesn’t connect to major job concentrations (as discussed later in this report). At the same time, Alternative 9A could not serve as an alternative to I-270 without an additional costly connection at the south end to the Intercounty Connector (ICC). The intersection of the southern end of existing Midcounty Highway at Shady Grove is already one of the most congested intersections in the county, and is predicted to still fail in the year 2030 even with the construction of Alternative 9A. Without additional capacity at this southern intersection, adding more traffic at the north end of the funnel will only further congest this bottleneck. For Alternative 9A to carry the additional traffic MCDOT projects and not be congested shortly after opening, the southern connection to the ICC would be necessary and would represent a significant additional cost that should be accounted for in the MCDOT proposal.

By the numbers: how much will each option cost to build? The chart below shows rough cost estimates for the various elements of each alternative that would rely upon county funds. For M-83, it includes the cost of environmental mitigation and the interchange connection to the ICC to handle the additional vehicle trips generated by the extension of M-83 to the north, as well as the congestion shown at the southern

The Case for Cancelling the Midcounty Highway Extended (M-83) | 11

intersections in the study. For the transit-composite alternative it includes local road improvements, BRT on 355, and transportation demand management. The costs are roughly comparable. With limited resources,

the county faces the choice between funding the highway or funding a critical portion of the countywide BRT network and local improvements.

Montgomery County cost contributions by Alternative

Alternative Alternative 2 Alternative 5

Cost $41M4 $120M5

355 North Bus Rapid $475M Transit MARC upgrades + Boyds station upgrade Transit Alternative estimate Alternative 9A Environmental mitigation

Notes Some of Alternative 5’s cost may overlap with the construction cost for 355 North BRT, though there isn’t enough information at this time. Preliminary cost estimates were done in 2011 by Parsons Brinckerhoff ($319M)6, and in 2013 by VHB ($630M)7. $475M reflects an average of the two preliminary estimates. MARC upgrades to the Brunswick Line and Boyds station would be state projects, and their cost is not yet known.

$626M

Does not include MARC upgrade costs

$371M8 $53.5M

Includes $14M for Middlebrook Road construction The Alternative 9A cost estimate does not include the cost for mitigating the impacts to wetlands, floodplains, forests, etc. ICC environmental mitigation projects were $370 million, or 15% of the project’s cost9, so using that metric, $53.5M is 15% of 9A’s cost estimate. Utilizes a per mile cost from 9A to determine estimate for 0.75 mile connection from existing Midcounty Highway to the ICC. Also estimates two interchanges as outlined in the DEER; one at Shady Grove Road and one at the ICC at an estimated cost of $100M each. Up to 7 possible grade separated intersections at the “major intersections” as listed in DEER: Ridge Road/Snowden Farm Parkway, Midcounty Highway/Goshen Road, Midcounty Highway/Montgomery Village Avenue, Midcounty Highway/Watkins Mill Road, Midcounty Highway/Middlebrook Road, Midcounty Highway/Germantown Road, Midcounty Highway/Brink Road.

Southern connection to the ICC

$247M

Additional future grade separated interchanges

$700M

Alternative 9A com- $1.371B prehensive estimate

Opposite page: Map of MCDOT’s “preferred alternative” 9A.

The Case for Cancelling the Midcounty Highway Extended (M-83) | 13

Upcounty transportation needs and goals

W

hile the composite transit-based alternative and the extension of the Midcounty highway have similar costs, the transit-based alternative appears to better meet the needs of Upcounty residents and the stated goals of the Midcounty Corridor Study. The study’s Purpose and Need statement focuses on seven goals: 1. Reduce existing and future congestion 2. Improve vehicular safety 3. Enhance network efficiency and improve

4. 5. 6. 7.

connections between economic centers Accommodate planned land use and future growth Facilitate bicycle and pedestrian connections Enhance homeland security Improve quality of life.

Goal 1: Reduce existing and future congestion MCDOT and other transportation agencies have long made predictions of seemingly never-ending growth in vehicle miles traveled (VMT) to justify new and

Montgomery County Vehicle Miles Travelled (VMT) on State Highways, 1988-2012

Opposite page: I-270 in Montgomery County. Image by Doug Kerr on Flickr.

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Average Daily Traffic on Maryland Route 355 has been stabilizing or declining on most segments, while MCDOT forecasts continued growth through 2030 50000

Avg. daily traffic - # of vehicles

45000

40000

35000

30000

25000

20000

SHADY GROVE RD TO MD 124

MD 124 TO MIDDLEBROOK RD

expanded highways. But recent driving trends on 355 reflect a nationwide, statewide, and countywide trend toward less driving.

MIDDLEBROOK RD TO MD 118

MD 118 TO MD 27

Maryland Route 355 in the study area.12

Nationally, VMT has been declining since 2004 (see graph on previous page). Over the past 10 years, Montgomery County has added over 100,000 people while traffic levels have stabilized and begun to decline.10

In terms of intersection performance, MCDOT’s Draft Environmental Effects Report predicts that Alternative 5 alone (even without Alternative 2 and Bus Rapid Transit) would have fewer failing intersections (seven) than their selected Alternative 9A (nine). Alternative 9A would also generate four failing intersections on 355 compared to two with Alternative 5.

MCDOT’s Statement of Purpose and Need and Draft Environmental Effects Report (DEER) assume, based on data collected in 2005, an increase of 38% in traffic on Route 355 by 2030.11 But historic Average Daily Traffic (ADT) data collected by the Maryland State Highway Administration from 2003 to 2013 indicate a general trend toward stabilizing or declining traffic levels on

It’s also likely that rather than creating a bypass for I-270 for regional through-traffic -- a benefit claimed by MCDOT for Alternative 9A -- the new highway may instead induce additional development in outer areas and generate new traffic that would not otherwise exist. The induced demand generated by the widening of I-270 in the mid-90s offers a cautionary tale about

16 | Coalition for Smarter Growth

Opposite page: Map of intersection operation levels in 2030 under Alternative 5, from MCDOT.

Best Practices in Rapid Transit System Design | 21

attempting to build our way out of traffic.14

current option is to drive.

There is a strong likelihood that building Alternative 9A as an eastern bypass to I-270 would attract additional driving that could overwhelm the new capacity, add additional congestion on connecting roads, lower quality of life for Clarksburg and other residential communities along the alignment, and undermine the county’s long held goal of reducing auto dependence. Given the high cost and low certainty of success in attempting to build our way out of traffic by pursuing Alternative 9A, as well as shifting travel trends in the corridor that reflect a countywide desire to drive less and utilize other options more, the county should look carefully at a combination transit alternative that could better manage demand and provide new healthier, more sustainable options to communities whose only

Goal 2: Improve vehicular safety The Midcounty Corridor Study cites improving vehicular safety as a primary goal. Yet it fails to assess safety impacts for people walking, cycling, or riding transit. Moreover, the increase in vehicle miles traveled generated by Alternative 9A could actually reduce safety for all road users including drivers, pedestrians, and bicyclists. Analysis conducted by the sustainable transportation non-profit EMBARQ has found a direct correlation between the average daily vehicle miles traveled per person and the number of traffic fatalities. In other words, fatalities increase with the growth in driving.

MCDOT projections for traffic levels on 355 in 2030 compared with historical traffic data in the study area between 2003-2013 13

MD 355 Segments Included in 2013 DEER SHADY GROVE RD TO MD 124 MD 124 TO MIDDLEBROOK RD MIDDLEBROOK RD TO MD 118 MD 118 TO MD 27

MCDOT’s 2030 ADT Forecast (# of vehicles) 47,917

MCDOT’s Forecast Change in 2030 from 2003-2013 (%) 34.32%

MCDOT’s Forecast Average Annual Change 2013-2030 2.02%

2003-2013 Average Annual Change in ADT (%) -0.33%

47,775

47.81%

2.81%

-0.01%

45,975

47.05%

2.77%

1.32%

40,994

14.52%

0.85%

-0.52%

Opposite page: Map of intersection operation levels in 2030 under MCDOT’s preferred Alternative 9A, from MCDOT.

The Case for Cancelling the Midcounty Highway Extended (M-83) | 19

The Draft Environmental Effects Report forecasts that Alternative 9A would increase vehicle miles traveled (VMT) in the study area and an average 19% more trips passing through each screenline15 during rush hour, compared to a 0.1% decrease for Alternative 516. Because Alternative 9A would attract more traffic through the study area, crashes would likely increase.17

Goal 3: Enhance network efficiency and connections between economic centers MCDOT’s Draft Environmental Effects Report considers

connections between economic centers to mean “improved mobility between the technology centers, federal research facilities, and institutions of higher education” planned for the 355 corridor.18 While the Midcounty Corridor Study, now over 11 years old, considered mobility to mean exclusively freedom to travel by car, a new study should consider the changing travel patterns of a 21st-century workforce in determining the alternative which would best improve efficiency and connections between economic centers. MCDOT’s 2013 Draft Environmental Effects Report

The relationship between vehicle travel and traffic fatalities in United States urban areas

20 | Coalition for Smarter Growth

Opposite page: Suburban-style office parks, like Hughes Networks Systems in Germantown, are losing popularity to Metro-accessible locations.

Left side doors on a Cleveland HealthLine vehicle. Image by wyliespoon on Flickr.

states that “congestion was cited as a major factor in the decision by at least one major employer [Bechtel] to leave Montgomery County for Frederick County.”19 But that company has since moved again to a future Silver Line station in Reston. They are not the only company moving to transit station locations. Today, many employers have made it clear that transit access is more important to them than new highways. As of April 2015, 86% of new office construction is taking place within 1/4 mile of Metro, and 94% within 1/2 mile. Meanwhile, 92% of large office leases in the region are within 1/2 mile of Metro, and office buildings far from Metro stations are losing significant value.20

In March of 2015, Marriott, Montgomery County’s 5th largest employer with over 5,000 employees, announced it intended to move its headquarters from a suburban office park in Rock Spring to a Metro station. Their CEO stated, “I think it’s essential we be accessible to Metro and that limits the options. I think as with many other things our younger folks are more inclined to be Metro-accessible and more urban.”21 Maps showing the location of major employers, 2010 job density, and 2040 density, demonstrate that an investment in 355 North Rapid Transit (along with the Corridor Cities Transitway) would much more directly serve existing and planned jobs, than would Alternative 9A.

These maps depict 2010 jobs, and forecast jobs in 2040 by Transportation Analysis Zone. Most existing and forecast jobs are centered around 355 and west of I-270, and would be better served by 355 BRT and the CCT.

22 | Coalition for Smarter Growth

Existing major employers in the study area are centered primarily along 355 or west of I-270

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MCDOT’s 2015 Preferred Alternative (PACM) report defines an efficient network as “one in which the full spectrum of highway classifications is represented; from collector road to minor arterial to major arterial to freeway”, while mentioning nothing about the availability of transit options.22 Currently, Upcounty residents have access to very limited commuter service on the MARC train to Silver Spring and downtown DC, and local bus service with long headways that primarily serves those who are dependent upon transit. BRT on 355 would fill in a missing level of the transit network, providing frequent, reliable service between the county’s corridor cities of Clarksburg, Germantown, and Gaithersburg, as well as growing jobs centers in Twinbrook, White Flint, and Bethesda.

Goal 4: Accommodate planned land use and future growth The I-270/355 corridor is expected to absorb significant additional growth in the next 25-35 years. However, the location and changing demographic trends of that growth would be better and more directly served by a high quality transit alternative and upgrades to 355 than by a new highway. MCDOT states that “43% of the projected residential growth and 50% of the growth in employment between 2010 and 2040 would occur in the planning areas encompassed by the (M-83) study area.”23 This overstates the level of growth that M-83 would serve, because those planning areas straddle I-270 and an overwhelming share of the growth in these planning areas is expected to be on the west side of I-270, such as the Life Sciences Center, or directly along 355. Therefore, much of the projected growth would not be

24 | Coalition for Smarter Growth

served by or be dependent on the M-83 Alternative 9A master plan alignment to the east. Mapping Montgomery County’s projected growth through 2040 (based on the regional round 8.1 Cooperative Forecast) demonstrates that the most intense areas of growth would be best served by upgrades to 355, 355 North BRT, and the Corridor Cities Transitway.24 Since much growth in the I-270 corridor will not be served by M-83, MCDOT’s only remaining “needs” justification for Alternative 9A would be to accommodate planned growth in Clarksburg.25 Yet, that growth is falling far short of predictions. Clarksburg’s 1994 master plan allowed for a total development capacity of 14,930 household units, or capacity for approximately 40,000 inhabitants.26 To date, 7,359 new household units have been approved for construction under the master plan but only 3,422 new household units have been built, possibly reflecting the structural shift in demand toward more urban living and locations closer to jobs. The Clarksburg plan proposed 1.49 million square feet of office and retail development but only 110,325 square feet, or 7%, has been built, reflecting the shift in desirable office locations, and for retail, the lower residential demand.27 The development or leasing of commercial office space is unlikely at this time given a weak commercial real estate market, which the county acknowledges in their 2014 Ten Mile Creek Limited Amendment master plan, stating “market conditions no longer support the goal that large amounts of land in Clarksburg should be devoted to office and employment activities, which was a major vision of the 1994 Plan.”28

The most intense employment growth by 2040 in the study area is predicted directly along 355 and the CCT, within half mile walksheds of the Rapid Transit stations, while most of the Transportation Analysis Zones along Alternative 9A are not expected to see any growth in employment.

The Case for Cancelling the Midcounty Highway Extended (M-83) | 25

The most intense residential growth is predicted along the 355 corridor in Clarksburg, Germantown, and Gaithersburg within a half-mile walkshed of planned BRT stations, as well as west of I-270.

26 | Coalition for Smarter Growth

This is only reinforced by a recent study conducted for the Montgomery Planning Board, which found that there are over 12 fully vacant office buildings in Montgomery County, plus 9 more due to planned departures, all of which are outside the Beltway and away from transit. The study concludes that, “the most successful office clusters in Montgomery County are part of mixed-use developments with a strong sense of place and a quality environment. Transit connectivity is increasingly important to office tenants.”29

residents commute to Germantown, Gaithersburg, Rockville, White Flint, and Bethesda. It also found that the most significant growth in travel demand in the 355/I-270 corridor between now and 2040 will be to what they labeled as District 2, or the area around Twinbrook, White Flint, and Grosvenor, rapidly emerging transit-oriented centers.

More recent analysis completed by Maryland State Highway Administration (SHA) for the 355 North Bus Rapid Transit study found that today, most Clarksburg

Specifically, Clarksburg residents are expected to make 68% more trips to the Twinbrook/White Flint/ Grosvenor area and 55% more trips to the Rockville area by the year 2040, suggesting a direct, high-quality transit connection via BRT would likely be an attractive option.30

Where Clarksburg residents commute to

Growth in commuting trips by Clarksburg residents by 2040

Clarksburg Residents Work

16

The Case for Cancelling the Midcounty Highway Extended (M-83) | 27

MCDOT has not yet looked at the additional capacity that the bus rapid transit (BRT) system would provide, and how it might serve Upcounty and shape a different pattern of land use -- including supporting the longpromised and long-delayed mixed-use town center at Clarksburg. Hopefully, the upcoming transit alternative study will more closely examine the benefits of transitbased alternatives to shape more efficient land use in the area.

Route 355 for our alternative and M-83 for MCDOT’s). MCDOT states that sidewalks and bicycle facilities “serve as critical links in the transportation network,” indicating that its goal is to facilitate walking and bicycling as transportation, not recreation.

Goal 5: Facilitate bicycle and pedestrian connections

However, Alternative 9A clearly provides little utility for these modes, given the very few destinations along its alignment. In the DC region, the median distance people walk to transit is just less than 1/2 mile,31 and nationally the average bicycling distance to a transit station is between 1-2 miles.32

Both Alternative 5 (as part of our preferred approach) and Alternative 9A (MCDOT’s proposed approach) would include a shared use path for pedestrians and cyclists along the entire length of the corridor (along

Given the high number of employment, retail, and institutional destinations, as well as residential density along 355 in the study area, it appears that upgraded bicycle and pedestrian facilities in and connecting to

A separated bike and pedestrian trail alongside the Orange Line Bus Rapid Transit in Los Angeles. Image by EMBARQ Brasil on Flickr.

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Photo by OmniTrans of San Bernardino, CA.

this corridor would be far more successful in supporting more walking and cycling in the corridor. A major focus of the 355 North BRT study is in providing “safe multi-modal access to transit”.33 Since most transit trips start with a walk or bicycle ride, Alternatives 2, 5, and BRT together offer synergistic ways to significantly increase the safe, healthy transportation options available to residents in the study area. However, many significant gaps in safe, comfortable access for people walking and cycling exist in the corridor. SHA and MCDOT should look to national best practices in bicycle and pedestrian planning to design and build a safe, attractive, multi-modal 355 and a continuous network of low stress sidewalks and bike facilities

connecting the corridor to neighborhoods and other destinations. These new pathways to work, schools, libraries, parks and retail, will help to cut car trips throughout the study area, while improving health and reducing air pollution and greenhouse gas emissions.

Goal 6: Enhance homeland security The Midcounty Corridor Study cites “enhancing homeland security” as one key criteria, which MCDOT’s Draft Environmental Effects Report defines as a “term that encompasses several factors, including response to hazmat spills, terrorism, severe weather, fires, wildfires, floods, gas leaks, and highway accidents”. Recently, “homeland security” has been used by highway proponents to imply the need for more and

The Case for Cancelling the Midcounty Highway Extended (M-83) | 29

wider radial highways, like M-83, for evacuation of the core of the region, even though we are unaware of any regional security study highlighting a likely need for a massive regional evacuation. Instead, “shelterin-place” is most commonly recommended, as safer and less likely to result in massive traffic jams, allowing authorities to respond quickly to any incident. For the potential incidents described by MCDOT, BRT on 355 would provide a transit-only lane that would

be clear from traffic for emergency vehicles to use, as is allowed in most BRT systems around the country,34 providing excellent access for first-responders for the most common daily emergency situations.

Goal 7: Improve quality of life The Midcounty Corridor Study defined quality of life to encompass “employment, educational opportunities, affordable housing, and time with family, parks and recreation, and cultural venues,” but used “travel

t Environmental Effects Report 2013Travel time analysis from the MCDOT DEER measured travel time between the ends of the proposed Alternative 9A (from A to B), which do not

represent meaningful employment, residential, or other destinations for most people, rendering the comparison arbitrary and not meaningful to the quality of life of most residents.

Figure 3-11: Travel Time Corridors

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following conclusions can be drawn from the Synchro travel time analysis (refer

According to 2013 census data, the highest levels of poverty in the study area are along the 355 corridor, especially in Gaithersburg.

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2013 American Community Survey census data for block groups in the study area indicates that a high percentage of transit riders currently face long commutes due to inadequate transit access in the area.

Driving Public transit

< 10 minutes 5.64% 1.47%

10-14 minutes 9.54% 5.52%

15-19 minutes 13.21% 1.60%

20-24 minutes 13.48% 3.96%

time” as its only measure for comparing quality of life between alternatives.35 It doesn’t consider the negative health effects of car commutes, nor the air pollution, the impact of a major highway in dividing neighborhoods, and the benefits of walking, bicycling and using transit for health.36 In addition, the travel time analysis utilized is too limited in scope to prove useful to most Upcounty residents. By looking only at travel time for each alternative between the end points of Alternative 9A, the study: 1. Biases the analysis towards Alternative 9A which of course travels the shortest distance between those points, and 2. Fails to note that those end points are arbitrary and do not represent any significant commercial, employment, or other destination, rendering the travel time comparison irrelevant to most residents in the area. The “quality of life” analysis also falls short because it fails to take into account travel time for transit riders,

25-29 minutes 4.50% 1.81%

30-34 minutes 15.18% 10.47%

35-44 minutes 9.56% 3.97%

45-59 minutes 12.68% 12.64%

60 + minutes 16.21% 58.55%

both riders of choice and necessity, in the area. A transportation investment of this magnitude ought to take into account the increasing demand for transit among the new generation of workers, the importance of transit access for suburban residents with lower incomes, and the rising rates of suburban poverty in the area. From an equity perspective, investment in M-83 highway would divert transportation funding away from communities most in need of improved transportation access. By mapping census data for the study area, we can see how an investment in high quality transit servicing the 355 corridor would more directly benefit the growing number of families who are low-income, and/or have limited access to cars in neighborhoods along 355 in Gaithersburg and Germantown than would a new highway to the east. A recent analysis for the 355 North BRT study shows the limited transit accessibility to jobs that people in communities along 355 north of Rockville experience. Investing in 355 North BRT, alongside other improvements to 355 and other transit services, could go a long way toward linking residents in need of access Opposite page: The definition of “Quality of Life” should encompass considertations such as employment, educational opportunities, affordable housing, and time with family, parks and recreation, and cultural venues, as shown here. Image by Chris on Flickr.

32 | Coalition for Smarter Growth

to jobs with the large number of existing and planned jobs in the corridor, and enhance the county’s economic

competitiveness in an era where companies are seeking good transit access for their employees.

According to 2013 census data, most people living without a vehicle, or in households with one or fewer vehicle, live near the 355 corridor within walking distance of the proposed BRT system in the study area.

34 | Coalition for Smarter Growth

Opposite page: map from 355 North Bus Rapid Transit Study, State Highway Administration 37

RECOMMENDATIONS & CONCLUSION

M

ontgomery County’s 1993 General Plan Refinement, the most recent countywide plan based on the rural/lower-density suburban wedges, and higher-intensity corridors concept, reinforced the 1964 General Plan’s focus on directing growth to the I-270/355 corridor, with an emphasis on transit serviceable (the former term for transitoriented), compact land use in the corridor cities. The 1993 General Plan Refinement moved away from the 1964 plan’s attempts to provide more and more road capacity to a growing population. Recognizing that this was an expensive and often unsuccessful endeavor, the 1993 plan called instead for “making better use of the transportation system already in place, getting more people into trains, cars, and buses in future right-of-way, and creating an environment conducive to walking and biking”.38 Over 20 years later, the corridor cities of Rockville, Gaithersburg, Germantown, and Clarksburg have grown, yet transit has not. Over the same time period, travel preferences have shifted, reinforcing the vision set out in the 1993 plan: driving has declined, and residents are seeking healthier transportation options. A 2014 poll conducted by the Coalition for Smarter Growth found that over 70% of county residents are in favor of a countywide BRT network, and later that year the County Council approved an 81-mile BRT network.

Opposite page: Route 355 at Montrose Parkway. Image by Bossi on Flickr.

It’s time to move beyond M-83 highway, and complete the vision for Montgomery’s transit-oriented corridor cities, and create healthier, more sustainable, more equitable communities in the process. To do so, we’d like to offer the following recommendations: Work with the community: Lead an inclusive, community-driven process to develop a shared vision for a transportation future for communities in the Midcounty Corridor that is based on equitable, sustainable travel options that support the county’s smart growth and environmental goals. Pursue viable transit alternatives: The new study should analyze a composite alternative that includes M-83 Alternatives 2 and 5, along with 355 North BRT, local street, pedestrian and bicycle connections, and upgraded MARC service, that can provide a broader range of transportation options for Upcounty commuters. This new study should follow the county’s transit-first orientation by determining a suite of alternatives that can best support the county’s goals for sustainability and equity. Account for changing market demand and competitiveness of transit-oriented development: The nation and region are seeing profound shifts in living and working preferences favoring walkable, urban, transit-oriented neighborhoods and centers. Companies are abandoning office parks in favor of locations with high-capacity, high-frequency transit. The new study

The Case for Cancelling the Midcounty Highway Extended (M-83) | 37

should determine which transportation investments will best support these market shifts and ensure the county’s economic competitiveness in the face of these trends. Take M-83 off the Master Plan: Planners drew M-83 on a map over 60 years ago, in an era of hope about driving and before awareness of the role of new and expanded highways for increasing sprawl and congestion. It is time to put to rest the idea that M-83 would solve Upcounty’s transportation gridlock, and work together to create the best possible transit-

38 | Coalition for Smarter Growth

oriented transportation plan. We strongly recommend the Montgomery County Council vote to remove M-83 Alternatives 4, 8, and 9 from the Master Plan of Highways and Transitways, and to support M83 Alternatives 2 and 5, combined with BRT on 355 North, MARC, local street, pedestrian, and bicycle investments. After decades of debate and divisiveness, it’s time to put this proposal in the past, and move towards a healthier, more sustainable, and more equitable transitoriented future.

Map from 1994 Clarksburg Master Plan depicting the planned Transit Corridor District

The Case for Cancelling the Midcounty Highway Extended (M-83) | 39

CITATIONS & ENDNOTES Section III: Alternatives Retained for Detailed Study, Midcounty Corridor Study Draft Preferred Alternative and Conceptual Mitigation. http://www.montgomerycountymd. gov/corridor/Resources/Files/MidCountyCorridor/ DRAFTPACM_Vol1_03ARDS.pdf , p. III-1.

Midcounty Corridor Study Statement of Purpose and Need (2007), http://www.montgomerycountymd.gov/corridor/ resources/files/pdf/Jan2007_Purpose_Need.pdf, Table 1, p. 5.

2

“Everett Station opens on February 4th, 2002.” http://www. historylink.org/index.cfm?DisplayPage=output.cfm&file_ id=8563

Traffic Volume Data from Maryland State Highway Administration (SHA), http://sha.maryland.gov/Index. aspx?PageId=792.

Transportation Comparison of the Alternatives, Midcounty Corridor Study, Draft Environmental Effects Report. http:// www.montgomerycountymd.gov/corridor/Resources/Files/ pdf/May2013_DraftEER/may2013eer_section3.pdf, p. 3-23.

Traffic Volume Data from Maryland State Highway Administration (SHA), http://sha.maryland.gov/Index. aspx?PageId=792; Transportation Comparison of the Alternatives, Midcounty Corridor Study, Draft Environmental Effects Report. http://www.montgomerycountymd. gov/corridor/Resources/Files/pdf/May2013_DraftEER/ may2013eer_section3.pdf, Table 3-7, p. 3-29.

1

3

Alternatives, Midcounty Corridor Study, Draft Environmental Effects Report. http://www.montgomerycountymd. gov/corridor/Resources/Files/pdf/May2013_DraftEER/ may2013EER_Section2.pdf, p. 2-36.

4

5

ibid.

Countywide Bus Rapid Transit Study, Consultant’s Report. http://montgomerycountymd.gov/dot/resources/files/ mcbrtstudyfinalreport110728.pdf, Table 4-2, p. 30.

6

Countywide Transit Corridors Functional Master Plan--Long Range Planning Cost Estimate. http://www. montgomerycountymd.gov/RTS/Resources/Files/ CountywideTransitCorridorsFMPCostEstimateMemo.pdf, p. 4.

7

Alternatives, Midcounty Corridor Study, Draft Environmental Effects Report. http://www.montgomerycountymd. gov/corridor/Resources/Files/pdf/May2013_DraftEER/ may2013EER_Section2.pdf, p. 2-36

8

Maryland State Highway Administration and the Environmental Defense Fund settle Intercounty Connector appeal. http://www.sha.maryland.gov/pages/release. aspx?newsId=161

9

2014 Montgomery County Mobility Assessment Report. http://montgomeryplanningboard.org/ agenda/2014/documents/MobilityAssessmentReport201410

40 | Coalition for Smarter Growth

DRAFT4-9-2014_000.pdf, p. 4. 11

12

13

Note: Chart was created by averaging the percent change per year for each segment between 2003 and 2013, and comparing that with the percent annual change forecasted between 2013 (the year MCDOT published its forecast traffic for 355) and 2030 (the forecast year). “Md’s Lesson: Widen the Roads, Drivers Will Come.” http:// www.washingtonpost.com/wp-srv/digest/traffic4.htm 14

Screenline is a conceptual line drawn perpendicular across a road corridor where either actual traffic counts or computer modeled traffic counts are measured. 15

Transportation Comparison of the Alternatives, Midcounty Corridor Study, Draft Environmental Effects Report. http:// www.montgomerycountymd.gov/corridor/Resources/Files/ pdf/May2013_DraftEER/may2013eer_section3.pdf , Table 3-6, p. 3-28. 16

EMBARQ’s Approach to Health and Road Safety. http:// www.scribd.com/doc/96187396/EMBARQ-s-Approach-toHealth-and-Road-Safety, p. 9. 17

Transportation Comparison of the Alternatives, Midcounty Corridor Study, Draft Environmental Effects Report. http:// www.montgomerycountymd.gov/corridor/Resources/Files/ 18

pdf/May2013_DraftEER/may2013eer_section3.pdf, p. 3-1. 19

ibid, p. 3-27.

20 “Vast majority of new office in region near Metro.” http:// planitmetro.com/2015/04/22/vast-majority-of-new-office-inregion-near-metro/

“Marriott CEO: We will move our headquarters.” http:// www.washingtonpost.com/news/digger/wp/2015/03/01/ marriott-ceo-we-will-move-our-headquarters/ 21

Transportation Measures of Effectiveness. Draft Preferred Alternative and Conceptual Mitigation, Midcounty Corridor Study. http://www.montgomerycountymd.gov/corridor/ Resources/Files/MidCountyCorridor/DRAFTPACM_ Vol1_04TransMeasures.pdf. p. IV-4. 22

Transportation Comparison of the Alternatives, Midcounty Corridor Study, Draft Environmental Effects Report. http:// www.montgomerycountymd.gov/corridor/Resources/Files/ pdf/May2013_DraftEER/may2013eer_section3.pdf 23

MNCPPC Cooperative Growth Forecasts. http:// www.montgomeryplanning.org/research/data_library/ forecasts/7_1/research_forecasts.shtm 24

Transportation Measures of Effectiveness. Draft Preferred Alternative and Conceptual Mitigation, Midcounty Corridor Study. http://www.montgomerycountymd.gov/corridor/ Resources/Files/MidCountyCorridor/DRAFTPACM_V, p. 4-3 to 4-4. 25

Montgomery County Planning Department, Clarksburg Master Plan (1994) http://www.montgomeryplanning.org/ community/plan_areas/rural_area/master_plans/clarksburg/ land_clark.pdf, Table 2, p. 40, at 2.7 residents per household. 26

Pipeline of Approved Development, Montgomery Cnty. Planning Dept, http://www.montgomeryplanning.org/ research/data_library/development_activity_data_center/; see http://www.montgomeryplanning.org/research/ data_library/development_activity_data_center/documents/ PipelineSummary.pdf 27

28 Montgomery Cnty. Planning Dept, Approval of Planning Board Draft 10 Mile Creek Area Limited Amendment to the Clarksburg Master Plan and Hyattstown Special Study Area (2014) http://www.montgomerycountymd.gov/COUNCIL/ Resources/-Files/res/2014/20140401_17-1048.pdf.

Montgomery County Office Market Assessment, 2015. http://www.montgomeryplanningboard.org/agenda/2015/ documents/MontgomeryCountyOfficeFinalReport061815_000. pdf, p. V. 29

355 North Corridor Advisory Committee Presentation #3. http://www.montgomerycountymd.gov/RTS/Resources/ Files/MD%20355%20CAC%20Mtg%203%20North%20-%20 FINAL%20Presentation.pdf, Slide 14. 30

31 What’s a transit “walk-shed”? PlanItMetro. http:// planitmetro.com/2014/06/10/whats-a-walk-shed-to-transit/

Assessment of bicycle service areas around transit stations. http://flrec.ifas.ufl.edu/hochmair/pubs/journal_bicycleAccess_ acceptedVersion.pdf, p. 2. 32

355 North Corridor Advisory Committee Presentation #3. http://www.montgomerycountymd.gov/RTS/Resources/ Files/MD%20355%20CAC%20Mtg%203%20North%20-%20 FINAL%20Presentation.pdf, slide 30. 33

APTA: http://www.apta.com/resources/standards/ Documents/APTA-BTS-BRT-RP-007-10.pdf. para 3.4.1, p. 9. 34

35 Transportation Measures of Effectiveness. Draft Preferred Alternative and Conceptual Mitigation, Midcounty Corridor Study. http://www.montgomerycountymd.gov/corridor/ Resources/Files/MidCountyCorridor/DRAFTPACM_ Vol1_04TransMeasures.pdf, p. IV-10.

Commuting’s Hidden Cost. http://well.blogs.nytimes. com/2013/10/28/commutings-hidden-cost/?_r=0 36

355 North Corridor Advisory Committee Presentation #3. http://www.montgomerycountymd.gov/RTS/Resources/ Files/MD%20355%20CAC%20Mtg%203%20North%20-%20 FINAL%20Presentation.pdf, slide 17. 37

Montgomery County General Plan Refinement of the Goals & Objectives. http://www.montgomeryplanning.org/ community/general_plans/general_plan_refinement1993/ gen_plan_refinement1993.shtm, see http://www. montgomeryplanning.org/community/general_plans/general_ plan_refinement1993/transportation.pdf, p. 60. 38

The Case for Cancelling the Midcounty Highway Extended (M-83) | 41