Kenton County Transportation Plan

March, 2003

Prepared by the Ohio-Kentucky-Indiana Regional Council of Governments

for the Kenton County Fiscal Court

Acknowledgements Title Kenton County Transportation Plan Date March, 2003 Agency Ohio-Kentucky-Indiana Regional Council of Governments James Q. Duane, Executive Director Project Manager Dory Montazemi, PE, AICP, Deputy Executive Director Senior Planner Margo Lindahl We would like to express our appreciation to members of the Kenton County Transportation Task Force for the time and effort they have given to this process. We would also like to gratefully acknowledge Mr. Marshall Slagle and Mr. Kevin Linn of the Northern Kentucky Area Planning Commission for providing consultation and mapping assistance; Mr. John Pflum and Mr. Wardell Wilcox of Edwards and Kelcey for addressing the needs of county roads; Ms. Kellie Grob and Mr. Rob Pasquinucci of HSR Business to Business, Inc. for assistance with public involvement; Mr. Bob Hill and Mr. Mike Bezold of the Kentucky Transportation Cabinet for providing consultation and cost estimates; Mr. Mark Donaghy of the Transit Authority of Northern Kentucky for assistance with bus transit information; and Ms. Regina Brock of the Ohio-Kentucky-Indiana Regional Council of Governments for assistance with Task Force meetings. The following organizations have cooperatively financed the preparation of this document: the Federal Highway Administration, Federal Transit Administration, Commonwealth of Kentucky Transportation Cabinet, and units of local and county governments in the OKI region. The opinions, findings, and conclusions expressed in this document are those of the OKI Regional Council of Governments and are not necessarily those of the U.S. Department of Transportation. This report does not constitute a standard, specification, or regulation.

Kenton County Transportation Task Force

Judge Richard L. Murgatroyd, Kenton County Fiscal Court, Chair Mr. Sam Beverage, KYTC Mayor William Bradford, Elsmere Mr. Gailen Bridges, Citizen Mr. Ed Burk, Kenton Co. Dispatch/EMS Mr. Jim Cook, Kenton County Planning

Commission Mr. John Domaschko, Greater

Cincinnati/Northern Ky. Airport Mr. Mark Donaghy, TANK Chief William Dorsey, Kenton County

Police Department Representative Jon Draud, Kentucky

House of Representatives Mr. Ralph Drees, Drees Company Mr. Dan Dressman, Home Builders Assn Mr. Danny Fore, Tri-County Economic

Development Corporation Ms. Judy Gerding, Point Mr. Ralph Grieme, Jr., NKAPC Mr. Richard Guidi, KYTC Mr. Patrick Hale, Kenton County

Cooperative Extension Service Mr. Rob Haney, Kenton County Board

of Education Ms. Lorna Harrell, Kenton County

Conservation District Mr. Richard Harrison, Northern

Kentucky Water District Ms. Marlene Hayes, Citizen Mr. George Heeger, Citizen Mr. William Henderson, Ashland, Inc. Mr. George Hoffman, Citizen Mayor Thomas Holocher, Ft. Mitchell Mr. Barry House, KYTC Mr. Robert Issenmann, Covington Mr. Frank Jackson, Citizen Mr. Hensley Jemmott, Citizen Mr. Afton Kordenbrock, NKAPC Mayor Mark Kreimborg, Taylor Mill

Chief Paul LaFontaine, Elsmere Fire Department

Dr. E. Joseph Lee, II, Thomas More College

Mayor John Link, Edgewood Mr. John Lyons, Sanitation District #1 Mr. David Meier, Esq., Toyota Motor

Manufacturing Mayor Bob Miller, Ryland Heights Mr. Jack Moreland, Covington Board of

Education Ms. Pamela E. Mullins, Citizen Mr. Joe Murphy, Kenton County Public

Works Mr. Wally Pagan, Southbank Partners Mr. Ken Ramey, Northern Kentucky

University Mr. William Scheyer, Erlanger Mr. Ken Schmidt, Citizen Mr. Greg Shumate, Greenbaum, Doll &

McDonald Representative Arnold Simpson,

Kentucky House of Representatives Mr. Marshall Slagle, NKAPC Mr. Steve Stevens, Northern Kentucky

Chamber of Commerce Ms. Syd Terrell, N. Ky. Senior Citizens Mr. Tim Theissen, Kenton County

Planning Commission Mr. John Vissman, Forward Quest Ms. Jan VonHandorf, Diocese of

Covington Mayor Gene Weaver, Ft. Wright Mr. Mark Wendling, Independence Senator Jack Westwood, Kentucky

Senate Mr. Ralph Wolff, Citizen Mr. John Yeager, Ashley Development Mr. Robert Yeager, KYTC

NOTE: KYTC: Kentucky Transportation Cabinet NKAPC: Northern Kentucky Area Planning Commission

Executive Summary of the Kenton County Transportation Plan

This is a plan for meeting Kenton County’s transportation needs to 2030. Its recommendations are for improving a multi-modal system within the constraints imposed by financial resources. The recommendations account for existing and emerging land use, plan goals and transportation issues, public participation, and trends in population and job growth (Chapter 1). One of this plan’s unique features is its approach for linking transportation planning with land use (Chapter 2). This linkage is demonstrated by transportation recommendations that are coordinated with the County Comprehensive Plan, based on land use represented by “Transportation Service Areas,” and tied to policy needs for bringing new development into synch with transportation investments. To advance toward a viable multi-modal system and reduce future transportation problems, the plan recommends a new transit initiative. The recommendations outline the steps needed now to bring about a cost-effective Bus Rapid Transit System in the future (Chapter 4), in addition to improving bus service and implementing light rail and streetcar systems as recommended in regional studies (Chapter 3) and facilitating biking and walking (Chapter 7). To address the need for improving roadways, recommendations are developed separately for State and Federal Roads (Chapter 5) and for County Roads (Chapter 6). Improvements for State and Federal Roads are distinguished as “Priority” or “Needed” based on the availability of funds. For County Roads, recommendations are supplemented by a GIS database of roadway conditions to help the county manage maintenance and improvements. In addition to recommending new infrastructure, this plan also addresses the need for operational improvements on existing roadways (Chapter 8). It recommends studies of the county’s most congested areas to identify optimal combinations of traditional improvements (such as coordinated signalization, wider intersections, and access management), and it also recommends greater use of intelligent transportation system (ITS) technologies. To balance recommendations with financial resources, this plan includes a financial analysis (Chapter 9). It identifies which transportation improvements can be implemented with the $1.25 billion expected to be available through the planning period. For the remaining transportation needs, which represent a $1.27 billion shortfall, the plan clarifies the potential for additional funding and the need for local initiatives. Recommended improvements, inclusive of cost estimates, are summarized on the following pages.

Bus $240,800,000 including operation and maintenance • New east-west routes on • I-275 • KY-536 • 12th Street • A park-and-ride lot near the junction of Old KY-17 and Hands Pike Light Rail Transit $502,600,000 including operation and maintenance • From 12th Street in Covington to downtown Cincinnati (by 2008) • From 12th Street to the Boone County line (connect to Florence and airport by 2020) (Consistent with Regional Rail Plan; dependent on public decision on financing) Bus Rapid Transit (BRT) $450,000 for study BRT is a rubber-tired transit service that “combines the quality of rail transit and the flexibility of buses.” Time-saving features include exclusive lanes, expedited movement through intersections (signal preemption), and reduced boarding times (pre-paid fare collection, low-floor accessibility, multiple-door loading). BRT could be gradually implemented by adding special coaches & time-saving features to existing bus service. BRT is recommended on the interstates (shoulders may be feasible as exclusive lanes during peak hours) and routes where road-widening and new development could support future BRT (parts of KY-17, Turkeyfoot/KY-1303, KY-16, KY-536). • Conduct a conceptual design study of BRT in Northern Kentucky • Adopt policy to foster transit-supportive development and preserve right-of-way Streetcar $63,500,000 including operation and maintenance • Link Covington-Newport-Cincinnati by streetcar (replace Southbank Shuttle) (Consistent with Regional Rail Plan; dependent on public decision on financing) Bike & Pedestrian Facilities - Costs in roadway projects or financed locally • Support bike and pedestrian facility expansion as recommended in county plans County Roads (Primary) $25,000,000 million to bring up to standards Kenton County is responsible for 150 miles of roadway, for which it spends an average of $4.2 million per year for operation and maintenance. An additional $25 million is needed for 86 miles of Primary County Roads for safety improvements, upgrading to standards, and re-alignment of 14 intersections. The cost of widening roads that need additional capacity to accommodate traffic has not been estimated. • Bring Primary County Roads up to uniform standards for safety and maintenance ARTIMIS $31,300,000 including operation and maintenance ARTIMIS is the region’s traffic management system for freeways. It reduces congestion, expedites incident response, and improves safety. • Optimize ARTIMIS (add fiber optic to I-275, upgrade traffic signals on Dixie Hwy) • Integrate systems and agencies, including emergency response agencies • Expand use of advanced technologies (transit signal priority, highway-rail safety

systems, etc. (Consistent with Regional Intelligent Transportation System Plan)

State and Federal Roads - Priority Projects $681,560,000 capital cost (Funds expected to be available by 2030) • Improvements to East-West Travel Richardson & Madison/Old KY-17 from Turkeyfoot to Hands - Widen to 5 lanes Hands Pike and Wayman Branch from KY-17 to KY-16 - Widen to 3 lanes Harris Pike/KY-536 from KY-17 to KY-16 - Widen to 3 lanes 4th Street Bridge over the Licking River - Replace bridge and add 1 lane • Improvements to North-South Travel Brent Spence Bridge over the Ohio River - Replace with a new 10 lane bridge Bristow Road/KY-1303 from W. Richardson to KY-536 - Widen to 5 lanes Taylor Mill Road/KY-16 from Hands Pike to KY-536 - Widen to 5 lanes • Studies for Operational Improvements Dixie Highway/U.S. 25 from Boone County to Covington KY-17 major intersections/ramps from Kyles to Dudley to Horsebranch/Orphanage Turkeyfoot/KY-1303 from Dixie Highway to Dudley Road KY-17/Madison/Scott/Greenup from 3rd Street to 26th Street KY-16 & KY-177/Madison-James-Decoursey from 26th Street to Grand Avenue • Implementation of Operational Improvements 4th and 5th Streets in Covington - Add approach lane to I-75 & other improvements Dixie Highway/U.S. 25 between Commonwealth and Hallam - Add 1 lane Madison from Latonia Ave. to 26th Street - Remove parking to add 1 lane State and Federal Roads - Needed Projects $677,100,000 capital cost (Funds not expected to be available until after 2030) • Widening of Interstate Segments I-75 from Brent Spence Bridge to Kyles Lane - Add 2 lanes I-75 from Kyles Lane to I-275 - Add 2 lanes I-275 from I-75 to Campbell County/AA Highway - Add 2 lanes • Major Capacity Expansion Projects Visalia/KY-536 from KY-16 to KY-177 - Construct 2 lanes on new alignment Senour and Pelley from KY-17 to KY-16 - Widen to 3 lanes McCullum-Oliver-Cox from KY-17 to KY-16 - Reconstruct KY-16 from KY-536 to KY-17 - Widen to 5 lanes Commowealth from Boone County to Dixie Highway - Add 2 lanes • Widening and Other Improvements KY-17 at Moffet - Improve intersection KY-17 at Rich - Improve intersection Dolwick from Mineola Pike in Boone County to new Connector - Widen to 3 lanes Buttermilk/KY-371 at I-75 overpass from Hazlewood to Bills Lane - Add 2 lanes Kyles Lane from I-75 to Highland - Add 1 lane New bridge over the Licking River from Locust Pike to AA Highway State and Federal Roads - Operation and Maintenance to 2030 $299,700,000 Total Cost Estimate for Recommendations $2,522,010,000

Table of Contents Chapter 1. Introduction: The Planning Framework The Scope of the Plan . . . . . . . . . . . . . . . . . . . . . . . 1-1 Plan Goals and Issues . . . . . . . . . . . . . . . . . . . . . . . 1-2 The Planning Process . . . . . . . . . . . . . . . . . . . . . . . 1-3 Demographic and Employment Trends . . . . . . . . . . . . . . . . 1-6 Chapter 2. Linking Transportation and Land Use A Planning Strategy . . . . . . . . . . . . . . . . . . . . . . . 2-1 Land Use Planning . . . . . . . . . . . . . . . . . . . . . . . . 2-2 The Concept of Transportation Service Areas . . . . . . . . . . . . . 2-4 Policy Recommendation . . . . . . . . . . . . . . . . . . . . . 2-10 Chapter 3. Transit The Growing Role of Transit . . . . . . . . . . . . . . . . . . . . 3-1 Current Transit Service . . . . . . . . . . . . . . . . . . . . . . 3-2 Recommendations: Bus Transit . . . . . . . . . . . . . . . . . . . 3-5 Rail Transit Initiatives . . . . . . . . . . . . . . . . . . . . . . 3-6 Recommendations: Light Rail and Streetcar . . . . . . . . . . . . . . 3-9 Chapter 4. Bus Rapid Transit Initiative The Concept of Bus Rapid Transit . . . . . . . . . . . . . . . . . . 4-1 Kenton County Suitability for BRT . . . . . . . . . . . . . . . . . 4-2 Recommendations: BRT . . . . . . . . . . . . . . . . . . . . . 4-3 Chapter 5. State and Federal Roads The Focus of Recommendations . . . . . . . . . . . . . . . . . . 5-1 Committed Projects . . . . . . . . . . . . . . . . . . . . . . . . 5-3 Recommendations: Priority Projects . . . . . . . . . . . . . . . . . 5-4 Recommendations: Needed Projects . . . . . . . . . . . . . . . . . 5-10 Advancement Toward Implementation . . . . . . . . . . . . . . . 5-13 Chapter 6. County Roads Assessment of Primary County Roads . . . . . . . . . . . . . . . . 6-1 Priorities for County Roads . . . . . . . . . . . . . . . . . . . . 6-22

Chapter 7. Bicycle and Pedestrian Travel Role of Non-Motorized Travel . . . . . . . . . . . . . . . . . . . 7-1 Recommendations: Bike and Pedestrian Facilities . . . . . . . . . . . . 7-2 Chapter 8. Operational Improvements Traditional Approach for Improving System Operation . . . . . . . . . . 8-1 Intelligent Transportation System (ITS) Technologies . . . . . . . . . . 8-3 Recommendations: ITS Strategic Plan . . . . . . . . . . . . . . . . 8-7

Chapter 9. Financial Issues Financial Outlook . . . . . . . . . . . . . . . . . . . . . . . . 9-1 Funding Sources and Revenues . . . . . . . . . . . . . . . . . . . 9-2 Funding Needs . . . . . . . . . . . . . . . . . . . . . . . . . 9-5 County Road System . . . . . . . . . . . . . . . . . . . . . . . 9-7

List of Tables Number Page 1-1 Population by Decade . . . . . . . . . . . . . . . . . . . . 1-6

1-2 Population Change by Decade . . . . . . . . . . . . . . . . 1-6

1-3 Number of Households by Decade . . . . . . . . . . . . . . . 1-6

2-1 Land Area and Population by TSA . . . . . . . . . . . . . . . 2-7

2-2 Jobs by TSA . . . . . . . . . . . . . . . . . . . . . . . 2-8

2-3 Population Groups within TSAs in 2000 . . . . . . . . . . . . . 2-9

2-4 Population Groups within Kenton County in 2000 . . . . . . . . 2-9

2-5 Projected Change within Kenton County . . . . . . . . . . . . 2-9

3-1 Park-and-Ride Lots . . . . . . . . . . . . . . . . . . . . 3-4

3-2 Recommended Improvements for Bus Transit . . . . . . . . . . 3-5

4-1 Recommended Routes for BRT . . . . . . . . . . . . . . . . 4-5

5-1 Committed Projects for State Roads . . . . . . . . . . . . . . 5-4

5-2 Priority Projects for State Roads . . . . . . . . . . . . . . . 5-6

5-3 Needed Projects for State Roads . . . . . . . . . . . . . . . 5-11

6-1 Primary County Roads . . . . . . . . . . . . . . . . . . . 6-3

6-2 Bridge Conditions on Primary County Roads . . . . . . . . . . . 6-4

6-3 Pavement Widths on Primary County Roads . . . . . . . . . . . 6-7

6-4 Pavement Conditions on Primary County Roads . . . . . . . . . 6-7

6-5 Pavement Markings on Primary County Roads . . . . . . . . . 6-10

6-6 Signage Conditions on Primary County Roads . . . . . . . . . . 6-13

6-7 LOS Criteria for Signalized Intersections . . . . . . . . . . . . 6-13

6-8 LOS Criteria for Un-Signalized Intersections . . . . . . . . . . 6-13

6-9 Intersection Capacities on Primary County Roads . . . . . . . . 6-14

6-10 LOS Criteria for Primary County Roads . . . . . . . . . . . . 6-15

6 -11 Future LOS on Primary County Roads . . . . . . . . . . . . . 6-15

6-12 Accident Rates on Primary County Roads . . . . . . . . . . . 6-17

6-13 Accident Summary for Primary County Roads . . . . . . . . . 6-19

6-14 Guardrail Conditions on Primary County Roads . . . . . . . . . 6-19

6-15 Criteria for Ranking County Road Improvements . . . . . . . . . 6-23

6-16 Priority Ranking for Safety Improvements . . . . . . . . . . . . 6-25

6-17 Priority Ranking for Upgrading to Standards . . . . . . . . . . 6-26

6-18 Priority Ranking for Capacity Expansion . . . . . . . . . . . . 6-27

9-1 Financial Summary of Plan Recommendations . . . . . . . . . . 9-2

9-2 Estimated Transportation Revenues . . . . . . . . . . . . . . 9-3

9-3 Description of Federal Transportation Funding Sources . . . . . . 9-3

9-4 Estimated Costs of State Roads, ARTIMIS, and Transit . . . . . . 9-5

9-5 County Roadway Revenues . . . . . . . . . . . . . . . . . 9-8

9-6 County Roadway Expenses . . . . . . . . . . . . . . . . . . 9-9

9-7 Cost of Primary County Road Improvements . . . . . . . . . . . 9-10

List of Figures Number Page 1-1 The OKI Region . . . . . . . . . . . . . . . . . . . . . . 1-4

2-1 Land Use Plan 2001-2021 . . . . . . . . . . . . . . . . . . 2-3

2-2 Transportation Service Areas . . . . . . . . . . . . . . . . . 2-2

3-1 Recommended Bus System . . . . . . . . . . . . . . . . . . 3-3

3-2 The Regional Rail Plan . . . . . . . . . . . . . . . . . . . . 3-7

4-1 Recommended Bus Rapid Transit System . . . . . . . . . . . . 4-4

5-1 Recommended Improvements for State Roads . . . . . . . . . . 5-5

6-1 Primary County Roads and Intersections . . . . . . . . . . . . . 6-2

6 -2 Primary County Roads - Existing Traffic Volumes . . . . . . . . 6-5

6-3 Primary County Roads - Bridge Sufficiency . . . . . . . . . . . 6-6

6-4 Primary County Roads - Pavement Widths . . . . . . . . . . . . 6-8

6-5 Primary County Roads - Pavement Conditions . . . . . . . . . . 6-9

6-6 Primary County Roads - Pavement Markings . . . . . . . . . . . 6-11

6-7 Primary County Roads - Signage Conditions . . . . . . . . . . 6-12

6-8 Primary County Roads - Road Segment Capacity . . . . . . . . . 6-16

6-9 Primary County Roads - Railroad Crossing Conditions . . . . . . 6-18

6-10 Primary County Roads - Guardrail Conditions . . . . . . . . . . 6-20

6-11 Primary County Roads – Bus Transit Routes . . . . . . . . . . 6-21

7-1 Recommended Bikeways . . . . . . . . . . . . . . . . . . 7-3

8-1 ARTIMIS Coverage . . . . . . . . . . . . . . . . . . . 8-4

CHAPTER 1

INTRODUCTION: THE PLANNING FRAMEWORK

To meet Kenton County’s transportation needs to 2030, recommendations are developed for all transportation modes, linked to the county’s land use plan, and financially constrained. The recommendations are shaped by the consideration given to transportation goals, planning issues, coordination with public agencies, input from planning participation, and changes in county population and employment.

THE SCOPE OF THE PLAN Beginning with the Ohio River’s role in early settlement, transportation has been critical to Kenton County’s growth and prosperity. Major transportation projects – the Suspension Bridge and the Chesapeake and Ohio Rail Bridge in the late 1800s, the paving of Dixie Highway in the 1920s, the building of the interstate system – spurred the county’s economic growth and shaped its development. These projects have become integrated into a transportation system that is critical to the county’s economic vitality and quality of life. As the transportation system has become more complex, its impacts have become more pervasive. In response, efforts to improve transportation involve consideration of a variety of issues. In this plan, recommendations focus on fixing problems with the existing transportation infrastructure and expanding capacity to meet future needs, but consideration is also given to transportation impacts on economic, environmental, land use, and social issues. This is a multi-modal transportation plan for addressing Kenton County’s transportation needs through 2030. It includes… • linkage between transportation planning to land use, • recommendations for improving transit and initiating a bus rapid transit system, • recommendations for improving roads (differentiated between roads eligible for

federal funding and roads for which funding is primarily a county responsibility), • recommendations for improving bicycle and pedestrian travel, • recommendations for improving system operation (through operational

improvements that include intelligent transportation system technologies), and • a financial analysis that prioritizes recommendations based on the revenues

expected to be available to cover their costs.

1-1

PLAN GOALS AND ISSUES Goals and issues are part of the framework that has shaped this plan’s recommendations for improving transportation in Kenton County. The goals are defined below. • Maintain, improve, and expand the transportation system for moving people

and goods. The plan’s recommendations are focused on improving the transportation system

to meet travel needs. Improvements are needed to maintain the existing infrastructure and enable it to operate more efficiently, and expansion is needed to accommodate future travel needs. Recommendations are made to address congestion and operational problems and to improve connectivity, both within the county (especially for additional east-west connectors) and with regional and national highway and transit systems.

• Improve travel safety. The effort to improve safety is integrated into virtually all of the plan’s

recommended improvements. For roadways, recommendations address the inadequate width and poor alignment of some segments, as well as additional safety issues for county roads and intersections. Recommendations for improving system operation, including the expanded use of intelligent transportation system technologies, will enhance safety by improving emergency response, turning and merging movements, and transit security.

• Expand alternatives to driving.

This plan presents recommendations for improving transit, as well as bike and pedestrian facilities, consistent with national and regional transportation policy for urban areas. Highways and automobiles will remain the backbone of the transportation system, but transit’s growing importance is tied to the ever-increasing difficulty of adding lanes to solve congestion, the need to address air quality problems, and federal policy for insuring mobility for low-income and other groups with limited access to cars. For driving alternatives to be viable in the future, initiatives must get underway now.

• Link transportation improvements to the county’s land use. As development has become more dispersed, it has spurred increases in travel,

traffic, and congestion. Where roads are unsuited for growing traffic, the county is under pressure to implement improvements. Given the impacts of increased travel and the limitations on financial resources, transportation recommendations have been linked to land use by their consistency with the county land use plan and consideration of differences in the county’s diverse and changing land use.

1-2

The plan’s recommendations offer the potential to reduce future transportation problems if development trends can be altered by policy that supports more efficient transportation.

In addition to goals, this plan accounts for transportation impacts on a variety of environmental, social, and economic issues. These issues have been incorporated into transportation planning in response to federal policy. Examples of how this plan addresses some major transportation policy issues are summarized below. Air Quality - Federal law links air quality and transportation planning together because air quality cannot be improved sufficiently unless emissions are reduced from transportation sources. Kenton County is part of a region where tailpipe emissions must be reduced in order to achieve the ozone standard. Progress in controlling ozone has been and will be impeded by increased driving, so that greater efforts will be needed to reduce vehicle emissions in the future. Given that air quality will drive transportation planning for years to come, this plan recommends implementing transit and land use policy initiatives now as means to reduce the growth of emissions in the future. Environmental Justice - “Environmental Justice” has become an issue to be considered in developing recommendations that involve spending federal funds. As recommended projects proceed toward implementation, they are assessed for benefits and adverse impacts on areas with concentrations of “Environmental Justice” population groups. These groups include Minority and Low Income populations under federal policy, and may also include the elderly population, people with disabilities, and zero-car households for planning purposes (included in proposed OKI policy). This plan accounts for the needs of Environmental Justice population groups by its recommendations for expanding transit and by its linkage between transportation planning and land use (Chapter 2). Financial Constraints - This plan presents recommendations that address transportation needs and opportunities, but the recommendations are then constrained by the financial resources expected to be available for implementation. The plan includes a financial assessment that involves estimating the revenues expected to be available for financing transportation during the planning period, estimating the costs for implementing recommendations and for operation and maintenance, and comparing the revenues and costs to identify the financial shortfall. The recommendations are prioritized to balance costs with expected revenues. THE PLANNING PROCESS Early in 2001, Kenton County requested assistance from the Ohio-Kentucky-Indiana Regional Council of Governments (OKI) for developing a county plan to improve transportation. One of the issues that prompted the request is development’s impact on the need for transportation improvements. In Kenton County, as well as throughout this and other metropolitan areas, low-density residential development

1-3

has generated a need for roadway improvements that cannot be fully met with existing financial resources. In response to Kenton County’s request, OKI began developing this plan in the fall of 2001 with a commitment to link transportation planning and land use. OKI is the agency responsible for regional planning in the Cincinnati metropolitan area. Figure 1-1 shows OKI’s planning area, which includes Kenton, Boone, and Campbell Counties in Kentucky; Butler, Clermont, Hamilton, and Warren Counties in Ohio; and Dearborn County in Indiana. OKI’s long-range transportation plan addresses Kenton County, but this county-level plan is more directly focused on Kenton County’s needs and includes recommendations for county-owned roads.

1-4

At the time this plan was getting underway, OKI was finishing the update of the long-range metropolitan transportation plan, which was subsequently adopted as the OKI 2030 Regional Transportation Plan in September 2001. Transportation projects must be recommended in OKI’s long-range plan as a prerequisite for federal funding. Additional projects recommended in this Kenton County transportation plan will be integrated into the long-range plan when it is updated in 2004, or by amendment before that time. In developing this Kenton County transportation plan, OKI worked in partnership with three other agencies, obtained oversight from a Task Force representing the county’s diverse local interests, and sought public participation in two rounds of public meetings. The three agencies that coordinated most closely in this planning process, as listed below, are also involved in other aspects of transportation planning. • The Northern Kentucky Area Planning Commission (NKAPC) recommends

transportation improvements as part of its responsibility for developing the county’s Comprehensive Plan. As required under state statute, the county Comprehensive Plan is updated every five years and includes a Land Use Plan for guiding development. A plan update to 2021 was being completed at the same time that this county transportation plan was getting underway and was adopted in December 2001.

• The Kentucky Transportation Cabinet (KYTC) allocates the funds available

from federal and state programs for improving transportation. The KYTC produces an Unscheduled Needs List and a Six-Year Plan as a basis for advancing and funding transportation improvements. Updated versions of these documents, which are required every two years, were completed by the state in 2002.

• The Transit Authority of Northern Kentucky (TANK) is responsible for the

management and operation of the bus transit system serving Kenton, Boone, and Campbell Counties.

The Kenton County Transportation Task Force was important for overseeing the plan’s development. The Task Force was formed at the beginning of the planning process to review major milestones and preliminary recommendations. Its 58 members provided diverse perspectives and expertise. Every local government was invited to participate. Task Force members included local elected officials, representatives from public agencies and the private sector, and individual citizens. Public participation was sought in two rounds of public meetings. Each round of meetings was held at three locations and preceded by public advertising and articles in local papers.

1-5

• The first round of meetings was designed to obtain input on which transportation projects were most important for improving transportation. Participants were asked to review and comment on priority transportation needs identified by the Task Force and to identify additional needs or issues that were not on the list.

• The second round of meetings was focused on obtaining review and comment on the plan’s preliminary recommendations, including an indication (survey) of which recommendations were most important.

DEMOGRAPHIC AND EMPLOYMENT TRENDS County population and employment characteristics affect the number and distribution of trips, which in turn affect transportation needs. Population and household census data are presented in Tables 1-1, 1-2, and 1-3 as an indication of how Kenton County is changing, followed by some demographic and employment highlights and trends. Data for areas within Kenton County is presented in Chapter 2.

Table 1-1. Population by Decade 1970 1980 1990 2000 Kenton 129,440 137,058 142,031 151,464 Boone 32,812 45,842 57,589 85,991 Campbell 88,704 83,317 83,866 88,616 N. Ky. 250,956 266,217 283,486 326,071 OKI Region 1,613,414 1,663,257 1,744,122 1,886,650

Table 1-2. Population Change by Decade

1970-80 1980-90 1990-2000 1970-2000 Kenton 7,618 6% 4,973 4% 9,433 7% 22,024 15% Boone 13,030 40% 11,747 26% 28,402 49% 53,179 62% Campbell -5,387 -6% 549 1% 4,750 6% -88 - N. Ky. 15,261 66% 17,269 7% 42,585 15% 75,115 23% OKI Region 49,843 3% 80,865 5% 142,528 8% 273,236 15%

Table 1-3. Number of Households by Decade

1970 1980 1990 2000 Kenton 40,326 48,062 52,690 59,444 Boone 9,282 14,848 20,125 31,258 Campbell 27,007 28,618 31,169 34,742 N. Ky. 76,615 91,528 103,484 125,444 OKI Region 498,619 586,810 652,917 734,127

1-6

Population • Kenton County population was 151,500 in 2000. This is an increase of 9,400

(7%) since 1990. • Kenton County had 46% of Northern Kentucky’s total population in 2000 (8%

of the OKI region population); it had 22% of Northern Kentucky’s population growth between 1990-2000.

• Compared to neighboring counties, Kenton County’s population growth in 1990-

2000 (9,400) was about one third that of Boone County (28,400) and about twice that of Campbell County (4,800).

• Compared to the preceding decade, Kenton County population growth in 1990-

2000 was nearly twice the growth that occurred in 1980-1990 (increases of 9,422 in 1990-2000 and 4,973 in 1980-1990), but out-migration occurred at similar levels in both decades (5,275 in 1990-2000 and 5,729 in 1980-1990 as reported in the Kenton County Comprehensive Plan prepared by the NKAPC: Northern Kentucky’s Future, A Comprehensive Plan for Development, An Update for 2001-2021, prepared in 2001). County population showed a net increase because the number of births exceeded out-migration.

• Projections for Kenton County population are being revised by the Kentucky

State Data Center, University of Louisville, but current projections are for a 2030 population of 167,873, which represents a net increase of about 16,400 persons (11%) over the next 30 years, compared to an increase of about 22,100 (15%) for the 30 years between 1970-2000.

Households A long-term trend toward smaller household size, which has caused households to grow faster than population in all of the counties in the OKI region from 1970 to 2000, is expected to bottom out and stabilize before 2030. In the meantime, household growth is bolstering development and traffic to higher levels than what would be expected based on population growth. • The rate of household growth in Kenton County between 1990-2000 was 13%,

compared to a population growth rate of 7%. • Kenton County had a larger share of Northern Kentucky’s household growth than

its population growth during 1990-2000 (31% of the new households compared to 22% of new population).

1-7

Employment, Commuting, and Jobs Employment patterns affect the number, length, and distribution of trips. At a regional level, work trips comprise only one fifth of total person trips, but they place the greatest demand on the transportation system because of morning and afternoon peaks. • Kenton County employment was 76,169 in 2000 (50% of the population) as

reported by the census. Assuming that Kenton County trends will be similar to the region’s, the proportion of employed persons is projected to peak in 2010 at about 55% of the population and then decline as the baby boom generation reaches retirement age and leaves the labor force.

• Among Kenton County’s employed persons in 2000 (76,169), 40% worked

within Kenton County (compared to 53% of Boone County workers employed in their county of residence and 35% of Campbell County). The rest of Kenton County employed persons were nearly evenly split between commuting to Kentucky counties and commuting to counties in Ohio and Indiana.

• As a means of commuting in 2000, 81% of Kenton County employed persons

drove alone, 11% carpooled, 3% used transit, and 2% walked (the remainder used another means of commuting or worked at home.)

• The mean travel time to work for Kenton County employed persons in 2000 was

22.9 minutes (up from 21.5 minutes in 1990). Census reports travel time to work as less than 15 minutes for 28% of workers and more than 30 minutes for 27% of workers. For the others, 20% of workers have trips of 15-19 minutes and 25% have trips of 20-29 minutes.

• The number jobs in Kenton County as reported by the Bureau of Economic

Analysis grew from 59,6724 in 1990 to 73,489 in 2000, which is a growth of 13,765 (23%).

• Kenton County accounted for 39% of the total jobs in Northern Kentucky in

2000 (based on data from the Bureau of Economic Analysis). Of the job growth that occurred in Northern Kentucky between 1990-2000, Kenton County had 24%.

1-8

CHAPTER 2

LINKING TRANSPORTATION PLANNING AND LAND USE

To link transportation planning with land use, this plan’s recommendations provide for consistency with the County Comprehensive Land Use Plan, account for land use differences represented by “Transportation Service Areas,” and balance the county’s different transportation needs. To further strengthen the linkage between transportation and new development, land use policy is recommended that supports the recommended transportation improvements, including future transit expansion, and their potential to reduce congestion. A PLANNING STRATEGY This plan links transportation planning with land use as a strategy for meeting transportation needs and addressing numerous transportation issues. The linkage is accomplished on several levels: • providing for consistency between the transportation recommendations and the

county land use plan; • recommending transportation improvements to address different land use patterns

and trends (the concept of Transportation Service Areas); and • recommending land use policy that would maximize the benefits of the

transportation recommendations, particularly for a new transit initiative. This transportation-land use strategy is adaptable for transportation planning in other areas with development patterns similar to Kenton County – areas where established development has considerably denser, more diverse land use than the new development that is occurring in out-lying areas. In metropolitan areas across the country, the conversion of rural areas to “urban sprawl” has created an enormous need for transportation system improvements. In Kenton County, as in other metropolitan areas, the prevailing pattern of new development is one of lower densities and greater separation of residential, employment, and commercial uses than occurs in established areas. This development trend causes trips to be longer, which in turn increases vehicle miles of travel (VMT) and congestion. Throughout the country, the growth in VMT and congestion are tied to issues involving the economy, the environment, and the quality of life.

2-1

Traditionally, government has responded to development needs by expanding transportation infrastructure. Since roadway expansion cannot fully accommodate the growth of travel and congestion, federal policy has enlarged the scope of transportation planning to include strategies for managing travel demand and promoting transit. As part of the solution to transportation problems, planning promotes development patterns that reduce the need for expanding transportation capacity. This plan’s effort to link transportation and land use planning is facilitated by Kenton County’s land use plan, but this strategy needs the support and commitment of local agencies and officials. Kenton County has already begun to meet this challenge by taking the initiative to lay the groundwork for effective transit in the future, but the county’s ability to foster development patterns supportive of this plan’s recommendations is critical to the county’s future. LAND USE PLANNING The strategy for linking transportation planning with land use involved consideration of the county’s land use plan. Recommendations for improving transportation are consistent with the county land use plan and its direction for future development. For managing growth, the classic first-level tool is the local comprehensive plan. Comprehensive planning is required in Kentucky under Chapter 100 of the state’s Revised Statutes. The NKAPC is responsible for developing the comprehensive plan for Kenton County, which applies to both incorporated and unincorporated areas. Kenton County’s original plan was prepared and adopted in 1972 and has since been reviewed and amended on a five-year basis, as required by law. Kenton County’s most recent plan update was adopted in December of 2001 (An Update: 2001 - 2021, Northern Kentucky’s Future, A Comprehensive Plan for Development). The NKAPC prepared the plan in coordination with the Kenton County Planning Commission. The plan provides recommendations for a 20-year horizon “as a guide for public and private (land development) actions and decisions.” Kenton County’s comprehensive plan contains a land use element and a “Recommended Land Use” map (Figure 2-1). The land use element is the basis for local zoning and subdivision regulations and for decisions involving future land development patterns and needs. The Land Use map divides Kenton County into an “urban service area” and a “non-urban area.” The dividing line is roughly along KY-16 between the Boone County line and the KY-16/KY-536 intersection, and then roughly along Marshall Road and Decoursey Pike (KY-177) almost to I-275.

2-2

Figure 2-1. Land Use Plan 2001-2021

2-3

• The Urban Service Area is where the full range of urban services is planned for and anticipated to be available during the planning period. It represents the area that can be economically serviced with public water and centralized sanitary sewer facilities and other services such as storm sewer facilities, police and fire protection, street lighting, street cleaning, refuse collection and disposal. This area is encouraged for development at urban densities and for “urban-type” activities.

• The Non-Urban Service Area is where the full range of urban services cannot be

economically provided during the planning period. In this area, new development should occur at lower densities that do not need urban services. This area’s rural character should be retained and be promoted for agricultural and related purposes and low-density residential development.

Kenton County’s land use plan provides a sound basis for decisions on the expansion of public infrastructure (water, sewer, and roads). The Kenton County Planning Commission uses the plan to review proposals for infrastructure expansion, as required under state statute. The final decision on implementing a proposed extension, however, rests with the sponsoring agency: the local water and sewer districts or the Kentucky Transportation Cabinet. Where utility expansion occurs that is inconsistent with the Land Use Plan, it serves to prime undeveloped areas for new development and ultimately generate a need for additional public investment. To provide consistency with the county land use plan, this plan’s recommendations for transportation improvements are almost exclusively in the Urban Service Area. The only transportation improvements recommended in the Non-Urban Service Area are those that address safety issues. THE CONCEPT OF TRANSPORTATION SERVICE AREAS An innovative element of this plan’s strategy for linking transportation planning and land use involves the concept of “Transportation Service Areas,” or TSAs. The TSAs provide a framework for developing transportation recommendations that account for different land use patterns and, correspondingly, for meeting different transportation needs. Kenton County is divided into four TSAs, as shown in Figure 2-2. Each TSA is distinguished by a predominant land use mix and density that is different from the other three areas. Kenton County’s development pattern fits neatly into these four TSAs, but this methodology would also be feasible for other areas. As an indication of transportation needs, each TSA was reviewed for size and relative density and land use diversity, existing and projected population size and jobs, and the distribution of Environmental Justice populations (low income and minority

2-4

Figure 2-2. Transportation Service Areas

2-5

groups). This review was the basis for identifying the county’s diverse transportation needs and for balancing these needs in the plan recommendations. The TSA concept provides a basis for assessing transportation needs and developing recommendations that account for land use issues and provide a basis for policy consideration. Transportation-Land Use Linkage by TSA An assessment of TSAs indicates the need for different kinds of transportation improvements in different parts of the county, as indicated below. This summary focuses on the dominant features of each TSA that affects its transportation needs and the types of transportation improvements that are recommended. The data that provided a basis for this analysis is presented in the following section, “The TSA Framework.” • The Urban Area is distinguished by its high density and mixed land use pattern,

its inclusion of downtown Covington as a major job center, and its concentration of people for whom driving is a limited option. The area’s primary transportation needs are for reducing congestion, moving traffic more efficiently, and providing people who have limited access to automobiles with better access to job and service centers outside this area. In addressing these needs, the plan recommendations focus on improving the existing transportation system’s operation, expanding transit (includes recommendations for light rail and streetcar), and improving system connectivity (includes bridge expansion projects that benefit this area due to their location although they are recommended to improve county connectivity). Implementation of recommended improvements will contribute to this area’s economic strength and improve travel equity.

• The Suburban Area is almost entirely developed, but at a lower density than the

Urban Area, and contains about one quarter of the county’s land area and more than half the population and jobs. Since development and transportation infrastructure are already in place, the greatest transportation needs are for reducing congestion and enhancing the existing system, which involves operational improvements and capacity expansion in congested areas. Given the likelihood that this area will continue to provide the majority of Kenton County population and jobs for the next thirty years, transportation improvements are important for contributing to this area’s viability as a place to live and do business.

• The Developing Area, which is the about the same size as the Suburban Area, is

undergoing conversion from rural to residential use. This area is expected to accommodate more than half the additional population projected between 2000 and 2030. The continued growth of dispersed, low-density residential with few jobs and services will create a widespread need for new public investment in transportation improvements. This area’s development pattern implies the need

2-6

for expanding roadway capacity at levels beyond what can reasonably be afforded. While this plan recommends projects to expand roadway capacity, it also recommends laying the groundwork for improved transit and applying additional land use policy to support transit viability and reduce the need for future roadway expansion.

• The Rural Area is relatively undeveloped, with about 5% of county population

and an even smaller share of jobs. Transportation improvements, which are recommended in this plan, are needed to address safety issues and maintain infrastructure. The relative lack of development, the county’s Land Use Plan policy, and financial considerations dictate restraint from improving or expanding the transportation system other than for safety.

The TSA Framework The TSAs provide a framework for identifying dominant issues and trends that differentiate transportation needs in Kenton County. In the following discussion, data is presented and summarized in three rounds: TSA land area and existing and future population and jobs; the distribution of Environmental Justice populations (low income and minority groups); and the expected distribution of population and job growth. TSA Land Area and Existing and Future Population and Jobs The distribution of Kenton County population and jobs among TSAs is presented in Tables 2-1 and 2-2. The base years for population and jobs are different (year census 2000 data is available for population but not yet for jobs, so job estimates are presented for 1995). The distribution among TSAs of estimated and projected data is based on the small-area data used in developing OKI’s 2030 regional transportation plan.

Table 2-1. Land Area and Population by TSA Land Area 2000 Population 2030 Population

TSA Acres % Share Pop. % Share Pop. % Share Urban 4,400 4% 39,219 26% 34,117 20% Suburban 25,000 24% 81,117 54% 89,539 54% Developing 24,600 24% 22,706 15% 33,960 20% Rural 50,000 48% 8,422 5% 10,257 6% Kenton Co. 104,000 100% 151,464 100% 167,873 100% NOTE: For the county, population is from the 2000 census and projections developed by the Kentucky State Data Center, University of Louisville. For TSAs, the 2000 data is allocated from census block data; the 2030 data is consistent with the distribution of small-area projections used in developing OKI’s 2030 regional transportation plan.

2-7

Table 2-2. Jobs by TSA TSA 1995 % Share 2030 % Share Urban 23,901 39% 28,832 36% Suburban 34,814 56% 46,355 57% Developing 2,681 4% 3,861 5% Rural 734 1% 1,562 2% Kenton Co. 62,130 100% 80,610 100% NOTE: For the county, the 1995 estimate and 2030 projection are developed by OKI as presented in OKI’s 2030 regional transportation plan. For TSAs, allocations are consistent with the small-area pro- jections used for developing OKI’s 2030 regional transportation plan.

• The Urban Area includes downtown Covington and adjoining high-density

residential areas with a mix of residential, business, and service uses, including Bromley, Ludlow, and much of Covington. The Urban Area contains only 4% of the county land area, but in 2000 it accounted for one fourth of the county’s population (26%) and more than one third of the jobs (an estimated 39% in 1995).

• The Suburban Area is almost entirely developed, but at a lower density than the

Urban Area. It contains one quarter of the county land area (24%), more than half the population (54% in 2000), and more than half the jobs (an estimated 56% in 1995).

• The Developing Area is about the same size as the Suburban Area (24% of

county land area). In 2000, it had 15% of the county population and less than 5% of the jobs (an estimated 4% in 1995).

• The Rural Area has nearly half of the county’s land area (48%), with 5% of the

population in 2000 and 1% of the jobs. Environmental Justice Populations The distribution of the Environmental Justice population groups, as presented by TSA in Tables 2-3 and 2-4, is an indicator of transportation needs. This data is aggregated from the 2000 census for low-income (“In Poverty”) and minority populations (“Non-White” and “Hispanic”). Because of its concentration, data is also presented for zero-car households. The significance of these groups within each TSA is presented in Table 2-3; the distribution of the groups within the county is presented by TSA in Table 2-4.

2-8

Table 2-3. Population Groups within TSAs in 2000 In Poverty Non-White Hispanic Zero-Car HH.

TSA Pop. % TSA Pop. % TSA Pop. %TSA Pop. % TSA Urban 7,161 19% 5161 13% 531 1% 3,731 23% Suburban 4,557 6% 3396 4% 914 1% 1,833 6% Developing 1,238 5% 431 2% 181 1% 262 3% Rural 532 6% 119 1% 43 1% 110 4% Kenton Co. 13,488 9% 9107 6% 1,669 1% 5,936 10%

Table 2-4. Population Groups within Kenton County in 2000 TSA In Pov Non-White Hispanic ZeroCarHh Pop

Urban 53% 57% 32% 63% 26% Suburban 34% 37% 55% 31% 53% Developing 9% 5% 11% 4% 15% Rural 4% 1% 2% 2% 6% Kenton Co. 100% 100% 100% 100% 100%

The most notable concentration of Environmental Justice populations with transportation implications is in the Urban Area, which has more than half the low-income population (53%) and nearly two thirds of the households without cars (63%), in contrast to one fourth (26%) of the county population. These data indicate the importance of transit for connecting this area with jobs and services in other parts of the county. Distribution of Population and Job Growth Changes in population and job growth also indicate transportation needs. Expected changes are summarized in Table 2-5 and also presented in Tables 2-1 and 2-2. The table below shows the distribution of projected population and job growth within the county by TSA.

Table 2-5. Projected Change within Kenton County Population Change Job Change 2000-2030 1995-2030

TSA Change % Share Change % Share Urban -5,102 - 4,931 27% Suburban 8,422 39% 11,541 63% Developing 11,254 52% 1,180 6% Rural 1,835 9% 828 4% Kenton Co. 16,409 100% 18,480 100%

2-9

• The Urban Area is projected to lose population, decreasing its share of the

county total from 26% in 2000 to 20% in 2030, but is likely to maintain the majority of the county’s most transit-dependent populations. This area is projected to have a fourth of the county’s job growth (27%), but nonetheless experience a slight drop in its share of jobs (from 39% in 1995 to 36% in 2030) as employment grows in other parts of the county.

• The Suburban Area is projected to grow at levels that enable it to maintain its

current shares of county population and jobs (54% of population and 57% of jobs in 2030). This involves gaining 39% of the population growth and almost two thirds (63%) of the job growth through 2030.

• The Developing Area is expected to receive more than half the county’s

projected population growth (52%) but only 6% of the future job growth. At the end of the planning period, this area is expected to accommodate one fifth of the county population (20%) but only 5% of the jobs (Tables 2-1 and 2-2).

• The Rural Area is projected to have low levels of population and job growth (9%

and 4%, respectively) that will slightly boost its shares of county population (from 5% to 6%) and jobs (from 1% to 2%).

POLICY RECOMMENDATION This plan’s transportation recommendations account for land use (through the concept of TSAs and consistency with the county land use plan), but these recommendations do not affect land use and its impacts on travel behavior and transportation needs. The linkage between transportation and land use would be stronger if new development supported the efficient use of existing and recommended transportation facilities. Based on a continuation of widespread large-lot, low-density housing, the Developing Area in 2030 is projected to have 20% of the county population and 5% of the jobs. This means that residents will have to travel to other parts of the county or beyond for jobs and services, with corresponding increases in travel, congestion, and emissions. To address transportation problems, there will be a widespread need for capacity expansion projects. The cost of transportation projects is shared by all of Kenton County. For the Developing Area, current trends indicate that the transportation infrastructure needs to serve an area the same size as the Suburban Area but with fewer people and a presumably lower tax base. Given that growth in the Developing Area is occurring at less than half the density of the Suburban Area, and that the two areas are about the same size, the Developing Area may be relatively saturated with a population of about 40,000, compared to a population of about 80,000 in the Suburban Area.

2-10

At the same time transportation improvements are needed for the Developing Area, they are also needed in the Urban and Suburban TSAs. These areas need improvements that reduce congestion, stimulate new investment, and expand driving alternatives. Given that these areas had 80% of the population and 95% of the jobs in 2000, their continued viability is important to Kenton County’s future. This plan balances transportation recommendations between the Developing TSA and the Urban and Suburban TSAs, and it recommends safety improvements in the Rural TSA (but not capacity expansion, consistent with the county land use plan). Given the inability to fund all of the roadway expansion needed if existing trends continue, this plan recommends a network of major transportation corridors for the Developing TSA and a new transit initiative. For the Developing Area, this plan focuses on widening, improving connectivity, and facilitating transit use in three corridors: KY-17, KY-16, and KY-536. These recommendations are consistent with the county Land Use Plan concept of development nodes along these major corridors. They offer the potential to reduce the need for roadway improvements in other parts of the county, to reduce traffic congestion, and to make transit a viable option if strongly supported by land use. To optimize the effectiveness of the transportation recommendations, policy is needed to concentrate new development in the corridors recommended for transportation improvements and in areas with good access to these corridors, promote densities and design that support transit use (higher ridership will lower costs and congestion), and diversify development with job opportunities and services to help reduce travel and build a larger tax base. The county has been responsive to this need, having already amended its Comprehensive Plan and begun revision of its subdivision regulations. The ultimate effectiveness of these efforts will require steady and strong support from local officials. The county’s success in guiding new development into patterns more supportive of plan recommendations will largely determine the cost-effectiveness of transportation investments, and the strength of the transportation-land use linkage will have a lasting impact on Kenton County’s future.

2-11

CHAPTER 3

TRANSIT Transit is increasingly important as a means to reduce congestion, improve air quality, and insure mobility for all population groups. The transit improvements recommended for Kenton County include bus service expansion and recommendations from other planning initiatives to extend light rail through Kenton County as part of a regional rail system and to link the Covington, Newport, and Cincinnati downtowns by streetcar. THE GROWING ROLE OF TRANSIT Transit is becoming increasingly important in urban areas. It has always been valued by individuals who cannot or prefer not to drive, but now transit is being promoted for its role in addressing transportation problems in urban areas. Transit has become an integral part of strategies to reduce congestion, improve air quality, and move people from welfare into the economic and social mainstream (see Chapter 1). Among its benefits to Kenton County, transit is especially critical for its role in addressing air quality problems. Northern Kentucky was out of compliance with air quality standards until July of 2002, when its designation for ozone was upgraded from “non-attainment” to “attainment.” In 2004, the area will again be classified as “non-attainment” and face renewed requirements for reducing vehicle emissions as more stringent air quality standards go into effect. For “non-attainment” areas, the state sets “allowable levels” of vehicle emissions tied to air quality standards. Compliance is determined through a “conformity test” that compares the area’s vehicle emissions (calculated through modeling during the development of the regional long-range transportation plan) with the area’s “allowable levels.” Areas that fail the conformity test stand to lose federal funds for transportation improvements. In 2001, Northern Kentucky passed the “conformity test” by only a narrow margin, and passage will be even more difficult in the future. Increases in transit ridership can be critical for lowering emission levels as the ozone standards become more stringent. For transit to evolve into a viable travel option – and the current transportation system to become truly multi-modal – improvements must be made incrementally in a long-term process. Improvements include the gradual addition of more park-and-ride lots, bike and pedestrian connectors to transit stops, shuttle services, and higher density in developed areas. As transit becomes a more feasible option for connecting people with jobs and services, it will attract more riders and help reduce congestion.

3- 1

Kenton County is at a critical point for determining the role of transit in its future. At a minimum, the county has the opportunity to expand bus service. In addition, voters may be asked to make a decision on rail transit, as discussed later in this chapter. An additional alternative is Bus Rapid Transit, a long-term proposition for which the outcome depends on steps taken now, as discussed in the next chapter. CURRENT TRANSIT SERVICE Kenton County’s major transit service is the fixed-route bus service provided by the Transit Authority of Northern Kentucky (TANK). Additional transit service is provided by TANK’s special bus services and by other transit providers. TANK provides Kenton County with bus service as part of a multi-county operation that includes Boone and Campbell Counties and an extension into the Cincinnati Central Business District. This extension enables TANK riders to transfer to the bus system in Hamilton County (the Metro bus system, which is operated by the Southwest Ohio Regional Transit Authority, or SORTA). TANK’s bus routes are shown in Figure 3-1. An increasingly important aspect of transit service is the use of advanced technologies for transit management and operation. These technologies enable improvements in speed, reliability, security, and other features that make transit more attractive. TANK’s use of advanced technologies is summarized in Chapter 8. Fixed Route Bus Service TANK operates fixed route bus service on both a daily and express basis (operates during peak hours on weekdays). The fixed route service is provided on 33 regular routes, of which 22 are in Kenton County, and employs 90 full-sized coaches, all of them lift-equipped. In 2001, TANK’s annual ridership was nearly 4.4 million, which is a nearly 20% increase over a five-year period. Fares are currently $1.00 for adults, 50 cents for students, and 35 cents for senior citizens and people with disabilities. Fixed route service in Kenton County is provided in the northern, most developed area and also south of I-275 along three major north-south routes: Turkeyfoot (KY-1303) almost to KY-536, and KY-17 and KY-16 to their junction south of KY-536. TANK has expanded bus service by adding a transit center in downtown Covington that functions as a transfer and hub facility for nearly all of TANK’s routes, and by adding park-and-ride lots. Six of TANK’s 20 park-and-ride lots are in Kenton County (see Table 3-1), and three of these have over 95% occupancy on a daily basis. Another eight “unofficial” park-and-ride lots in Kenton County are at public facilities such as shopping centers and churches.

3- 2

Figure 3-1. Recommended Bus System

3- 3

Table 3-1. Park-and-Ride Lots Name Location Parking Spaces Buttermilk Crossing Crescent Springs 163 Covington Transit Center Covington 1500 Independence Independence 25 Jillian's Covington 50 Lookout Heights Fort Wright 60 TANK Headquarters Fort Wright 41

Special Bus Services In addition to fixed route service, TANK operates the following special services. • The Southbank Shuttle is a loop operation with two fixed routes that serve the

riverfront area in Covington, Newport, and Cincinnati. The operation uses 14 shuttle buses to provide service between hotels and major attractions in the Covington and Cincinnati entertainment districts and the Newport Aquarium and Levee. Coaches are handicapped-accessible and operate on a daily basis at 15 minute intervals (Monday-Thursday from 6 a.m. to 10 p.m., Friday from 6 a.m. to midnight, Saturday from 10 a.m. to midnight, and Sunday from 10 a.m. to 10 p.m.). Fares are 50 cents.

• The DayTripper provides door-to-door service in parts of Kenton County

without fixed route bus service. With six vans, this service delivers passengers to the nearest bus stop for fixed route service or directly to destinations where fixed route service is not available. Trips are required to be scheduled in advance. The DayTripper operates daily from 8 a.m. to 5 p.m. Fares are the same as for fixed-route service.

• Under the Regional Area Mobility Program, RAMP Service provides door-to-

door service and assistance in boarding and exiting for people with disabilities. Service is provided to downtown Cincinnati for transfers to similar service provided by Metro (known as Access). RAMP uses lift-equipped paratransit mini-buses. For the entire TANK service area, RAMP has 16 vehicles that serve about 185 people per day. Service eligibility is determined by TANK and can be scheduled for weekdays between 8:30 a.m. and 5 p.m. at a fare of $1.00 per trip (trips involving Metro require fares to be paid to both systems).

• Event Service is available for the Cincinnati Reds and Cincinnati Bengal home

games, the annual Riverfest event, and the Tall Stacks and other major festivals. For baseball and football home games, TANK has a fixed route service (one-way fares are $3.00 for adults and $1.00 for children) and also an option to reserve a coach for up to 38 people for transport between one location and the stadium ($250 round-trip).

3- 4

Other Transit Services In addition to TANK’s different bus services, transit is available to Kenton County from other providers that include private taxicabs, the Greyhound Bus Lines and Amtrak rail passenger service accessed from stations in Cincinnati (rail service is offered via “the Cardinal” between Washington, D.C. and Chicago), and carpools and vanpools, which are both forms of rideshare. Carpools and vanpools, which both rely on voluntary arrangements for commuting, are promoted and supported through OKI’s RideShare program. Carpools generally involve from two to five people sharing a ride in their personal cars. Vanpools generally involve from nine to fifteen commuters sharing a van for commuting. OKI markets rideshare through meetings with employers and a variety of promotional materials, operates a computerized carpool matching service for individuals, and offers a mapping program for employers that displays the locations of potential rideshare participants. OKI’s RideShare program also includes a guaranteed ride home program, assistance with establishing park-and-ride lots, and other programs. RECOMMENDATIONS: BUS TRANSIT TANK is committed to expanding and improving bus service in an effort to attract more riders. Expansion will involve adding more routes, more coaches, and new facilities that make service more convenient, such as park-and-ride lots, covered transit stops, and bike racks at bus stops. Improvements in management and operation involve the continuing application of new technologies, coordination with other transit operators, and other efforts to improve service frequency, reliability, and security. TANK has been aggressive in its efforts to expand transit ridership, and this approach is expected to continue. The recommendations for expanding TANK’s service in Kenton County, which are consistent with TANK’s plans, involve adding three additional routes and one park-and-ride lot, as presented in Table 3-2 and Figure 3-1. Table 3-2. Recommended Improvements for Bus Transit New Bus Routes I-275 Between I-75 (connect with existing route that extends west into Boone County to KY-237) and Campbell County (to I-471) KY-536 Between Boone County (to U.S. 42) and Campbell County (to U.S. 27) 12th Street Between I-75 and Campbell County New Park-and-Ride Lot (for 100 vehicles) KY-17/Madison Pike Near junction with Madison Pike (Old KY-17) north of Hands Pike

3- 5

All three of the recommended routes are for east-west travel. In addition to improving opportunity for east-west travel by transit, these routes will bring a new level of connectivity that will expand opportunities for north-south transit travel and improve transit’s overall viability as a travel alternative. Transit will also be improved by implementation of the recommended park-and-ride lot. Kenton County’s share of TANK’s estimated capital cost through 2030, including recommended improvements for the Northern Kentucky service area, is estimated to be $45.5 million. This plan’s financial analysis indicates that funds should be available to expand and maintain bus transit as recommended (see Chapter 9). RAIL TRANSIT INITIATIVES As part of the metropolitan area, Kenton County has been subject to several planning initiatives for rail transit. Kenton County is addressed by The Regional Rail Plan that was adopted by OKI’s Board in 2002, and also by two other planning initiatives from which recommendations were carried forward and integrated into The Regional Rail Plan: The I-71 Corridor Study that recommended light rail, and The Central Area Loop Study that supported recommendations for streetcar. Light rail and streetcar are different forms of transit but use similar technologies. Light rail is the most widely recommended rail technology for this metropolitan area. In a light rail system, the vehicles operate on tracks as individual or multiple units, powered by overhead electricity. The rail lines can be constructed along major highways or in existing rail corridors, or they can be built so that light rail blends into traffic on city streets. In urban areas where light rail has already been implemented, this technology has been successful and widely accepted. Streetcar is similar to light rail in that it uses rail track and is powered by overhead wires, but the cars are typically half the size, carry fewer passengers, and operate at lower speeds. A streetcar system, in contrast with light rail, is used almost exclusively for short trips. The Regional Rail Plan The Regional Rail Plan is the rail component of a larger plan called MetroMoves. The MetroMoves plan presents recommendations for developing a regional transit system over the next thirty years. It presents an expanded bus transit system for Hamilton County, Ohio, and a regional rail system. The rail system would extend into every county in the metropolitan area, with a major hub in the Cincinnati Central Business District that would connect rail lines and bus service. MetroMoves and its rail plan component were both developed by Metro in coordination with OKI and TANK. The Regional Rail Plan accounts for other recent rail transit planning initiatives by including or modifying their recommendations and also adds some new recommendations. The rail system, as shown in Figure 3-2, would include light rail

3- 6

and streetcar lines, as well as “commuter rail” lines (commuter rail uses diesel-powered vehicles that operate on freight tracks). The rail lines would be connected to bus and shuttle services at transit hubs, thus enabling passengers to transfer to destinations throughout the region. The Regional Rail Plan presents conceptual alignments, ridership forecasts, and costs for the recommended lines and operational concepts and benefit calculations for the system overall. In The Regional Rail Plan, Kenton County would be integrated into a transit system that would serve much of the region’s densely developed area and its most heavily traveled corridors. It would be included in the regional progression toward a multi-modal transportation system and share in the expected benefits involving re-urbanization and new development. The light rail system’s implementation will depend on each county generating its own funding, which would in turn provide eligibility for federal and state funding. The first step in this process was a ballot initiative for a half-cent sales tax to provide local funding in Hamilton County, which was turned down by voters in November 2002. The next step has not yet been determined, but the system’s implementation regionwide depends on its initial implementation in Hamilton County. The I-71 Corridor Study A “major investment study” (MIS) was conducted for the I-71 Corridor (I-71 Corridor Transportation Study) by OKI between 1995 and 1998 in response to recommendations in OKI’s regional long-range transportation plan of 1993 (Managing Mobility: Year 2010 Transportation Plan), which was the first plan to recommend a rail transit network for the metropolitan area. The outcome of the MIS was a recommendation for light rail from southern Warren County in Ohio, through Hamilton County into Covington, and then southwest along I-71/I-75 into Boone County with two end-points, one at the Cincinnati/Northern Kentucky International Airport and one in the Florence Mall area, as shown in Figure 3-2. For the recommended I-71 light rail line, a priority segment was identified between 12th Street in Covington and the City of Blue Ash, north of Cincinnati. This “starter segment” includes 19 miles of the recommended line’s 44 miles. OKI completed a Preliminary Engineering and Environmental Impact Study (PE/EIS) for the priority segment in November 2001. The study refined locations for rail alignment and stations, cost data, and information on impacts and benefits. The recommendations from the MIS and the PE/EIS for the I-71 Corridor were integrated into The Regional Rail Plan, including recommendations for the light rail alignment in Kenton County as presented later in this chapter.

3- 7

The Central Area Loop Study The Central Area Loop Study was begun in 1999 and completed in the fall of 2001 and adopted by OKI’s Board. The study was commissioned by OKI and directed by a committee that included representatives from the cities of Covington, Newport, and Cincinnati and from transit operating agencies, transportation agencies, and the private and public sectors. The scope of the study included three distinct elements: analysis of a loop circulator system between Cincinnati, Covington, and Newport and the evaluation of a preferred technology; an evaluation of traffic congestion on 4th and 5th Streets in Newport and Covington (see Chapter 5); and consideration of the feasibility of constructing a light rail line to Newport from the I-71 Corridor light rail line. The analysis of the loop circulator and study of alternative technologies resulted in the selection of the Southbank Shuttle as the preferred alternative. The technology of “Personal Rapid Transit” (PRT, which uses small, fully automated vehicles on an elevated guideway) was “not recommended,” but the development of additional information on design, feasibility, and cost was encouraged. In addition, The Central Area Loop Study recommended route modifications for the Southbank Shuttle and recommended study of streetcar in the future for serving city downtown resident and workday populations. RECOMMENDATIONS: LIGHT RAIL AND STREETCAR This plan’s recommendations for rail transit in Kenton County are consistent with The Regional Rail Plan, which in turn are consistent with recommendations made in the I-71 Corridor Study and PE/EIS Study and the Central Area Loop Study. Light rail is recommended for implementation in Kenton County in two phases: • north from 12th Street in Covington to downtown Cincinnati, which would

involve crossing the Ohio River on a new bridge, and • west from 12th Street in Covington to the Boone County line, and then extending

to Florence and the airport. The recommended light rail alignment for Kenton County is shown in Figure 3-2. The capital cost is estimated to be $97 million for the first phase from Cincinnati to 12th Street and $303 million for the second phase from 12th Street to Boone County. Implementation of the first phase is recommended for completion by 2008. Implementation of the second phase is recommended for completion by 2020. In addition to the recommendation for light rail, streetcar is recommended, consistent with the Regional Rail Plan, for linking the Covington, Newport, and Cincinnati downtowns. This streetcar route, as shown in Figure 3-2, would replace the

3- 8

Southbank Shuttle. The capital cost of the streetcar system in Kenton County is estimated to be $24 million, which would cover 1.5 miles of track from the south end of the bridge over the Ohio River to the center of the Bridge over the Licking River. Implementation is recommended for completion in 2010. Implementation of both the light rail and streetcar recommendations for Kenton County depend first on commitments for implementation in Hamilton County and then on local funding availability. A local funding commitment is a prerequisite for federal funding. The ballot initiative that was proposed in Hamilton County called for 25% local funding, but a funding strategy has not been developed for Northern Kentucky and is not likely to be developed unless funding is first committed in Hamilton County.

3- 9

CHAPTER 4

BUS RAPID TRANSIT INITIATIVE Bus Rapid Transit is recommended for Kenton County as a promising solution for reducing future transportation problems. To optimize BRT’s potential benefits and make it cost-effective to implement, efforts are needed now to foster transit-supportive development and preserve right-of-way. Local officials have responded to plan recommendations, but continued support and commitment are needed. THE CONCEPT OF BUS RAPID TRANSIT For the future, a Bus Rapid Transit (BRT) system offers a feasible approach for significantly increasing transit ridership by removing buses from congested traffic. The Federal Transit Administration is promoting BRT as cost-effective transit that combines the quality of rail transit with the flexibility of buses. BRT, which is already well established in some countries, is being pursued by a growing number of metropolitan areas in the United States. A BRT hallmark is speed, especially in comparison to ordinary bus service. From design to operation, BRT integrates time-saving features for their cumulative effect on reducing overall travel time. During boarding, time is reduced by coach design that includes low-floors, multiple-doors, and fare systems that use prepaid or electronic passes. To further reduce travel time, BRT systems have exclusive lanes, pre-empt signals at major intersections, and well-spaced stations. Other appealing BRT features include coaches with wheel-chair accessibility, the use of “clean fuels,” and the system’s quiet operation, frequent service, and operating flexibility. BRT’s flexibility allows it to operate on exclusive transit-way or in mixed traffic on ordinary streets. The exclusive lanes enable BRT coaches to avoid congestion and to move faster than ordinary transit or congested traffic, which attracts riders. In mixed traffic, where BRT operates in general traffic like any other bus, BRT picks up speed where pre-empt traffic signals are installed at major intersections. For Kenton County, BRT could be implemented incrementally over a period of time as one component of the transit system. BRT stations would be served by park-and-ride lots and regular bus service. If light rail were implemented, BRT would be a feeder system to channel riders from the lower two thirds of the county. BRT is important for making transit a viable travel option and advancing toward a multi-modal system to meet transportation needs.

4- 1

KENTON COUNTY SUITABILITY FOR BRT Kenton County is well suited for a BRT system. BRT would insure mobility in the area receiving the bulk of new development, and conditions in Kenton County provide a unique opportunity for initiating a BRT system. As development’s impact causes increased congestion, transit will become a more attractive option in the future. At the same time, BRT is especially applicable to Kenton County because of the location, timing, and pattern of prospective development and the opportunities for exclusive BRT lanes. Over the next thirty years in Kenton County, the area between I-275 and KY-536 is expected to absorb most of the county’s new development. Traffic will increase as the result of more development and the prevalence of large-lot residences. Under this projected land use pattern, access to jobs and services will require trips to other parts of the county or region. Given the county’s topographic constraints, traffic will be funneled to the major corridors that connect with employment and commercial centers. The major corridors for vehicle traffic in the developing area are the same ones most appropriate for bus routes. In a BRT system, these major corridors would ideally have exclusive lanes to bolster transit speed. The fact that many of these major corridors are planned for capacity expansion presents a prime opportunity for developing exclusive lanes. In the course of acquiring right-of-way for highway expansion, right-of-way could also be acquired for future BRT lanes. By acquiring the needed right-of-way before it is converted into development, the construction costs and implementation time for a future BRT would be greatly reduced. As the developing area’s major corridors drain north to the freeways, another opportunity for exclusive BRT lanes is presented by the potential use of the freeway shoulders during peak hours. If a BRT system were developed incrementally in Kenton County, the system’s operation could begin on the freeways where exclusive BRT lanes could potentially be implemented with little delay. The major corridors in the developing area, combined with the freeways, are suitable for a BRT system that would connect the developing area with Cincinnati and other major employment and commercial centers. The fact that many of these corridors have segments where widening is planned adds to BRT’s feasibility. Widening provides an opportunity for exclusive lanes that would expedite BRT speed and attract riders, and riders may be further motivated to take BRT as a means of escaping the congestion anticipated from this area’s future development.

4- 2

RECOMMENDATIONS: BRT A BRT system is recommended as the future transit backbone for Kenton County. It is recommended as a long-term proposition that can be implemented incrementally in order to serve the developing area when it is more populated. For the system to significantly attract transit riders and provide a viable alternative to driving, initiatives need to be taken now to preserve right-of-way that will be needed later, promote development patterns that will support transit use, and proceed with studies as a basis for the system’s conceptual design. The recommendations for developing a BRT system consist of two parts: an identification of recommended routes, and recommendations for advancing the system’s implementation. The recommendations for advancing BRT have already received strong support from county agencies. Recommended Routes The routes recommended for Kenton County’s BRT system form a framework bisected by north-south and east-west routes, as shown in Figure 4-1. As described in the preceding section, these routes function as major transportation corridors in the developing part of the county and present opportunities for preserving right-of-way for development as exclusive lanes that would enable BRT coaches to operate at higher speeds and attract more riders than would a conventional bus system. The recommended routes are listed in Table 4-1, along with their mileage and their potential for exclusive BRT lanes. The interstate routes offer an immediate potential for exclusive BRT service on the shoulders during peak hours, as is currently done with bus transit in Minneapolis-St. Paul, and these could be the first operational links in an evolving BRT system. Among the non-interstate routes, there is a potential to preserve right-of-way for future development as BRT lanes for segments recommended for widening where the needed right-of-way has not yet been purchased. There is also the potential for an exclusive BRT lane in the CSX rail corridor along the existing rail line, which would facilitate the use of BRT between the KY-16/I-275 interchange and the Covington Transit Center. All together, the recommended BRT system would extend for 44 miles. The routes would have stations served by park-and-ride lots and conventional bus service. Potentially, the system would extend into adjacent Boone and Campbell Counties and into the City of Cincinnati.

4- 3

Figure 4-1. Recommended Bus Rapid Transit System

4- 4

Table 4-1. Recommended Routes for BRT Mileage

East-West • I-275 between I-75 interchange and KY-16 4.8 Potential for BRT exclusive use of shoulder during peak hours • KY-536 between Turkeyfoot Road (KY-1303) and KY-16 6.0 Potential for preserving ROW in conjunction with widening between KY-1303 and KY-16 North-South • I-75 between I-275 interchange and Cincinnati 6.7 Potential for BRT exclusive use of shoulder during peak hours • Turkeyfoot between KY-536 and I-275 5.8 Potential for preserving ROW for BRT in conjunction with widening between KY-536 and Richardson • KY-17 between KY-536 and I-275 7.5 • KY-16 between KY-536 and I-275 7.8 Potential for preserving ROW for BRT in conjunction with widening between KY-17 and Hands Pike • KY-16 (Winston Avenue) and the CSX rail corridor between 5.4 the I-275 interchange and the Covington Transit Center Potential for exclusive BRT lane in CSX rail corridor Total Mileage 44.0

Advancement of Implementation In addition to recommending routes for a BRT system, this plan also makes recommendations for advancing the implementation of BRT. The recommendations involve taking initiatives now to make BRT more cost-effective and feasible in the future. If implemented, these recommendations would reduce future construction cost and support BRT potential for greater speed, connectivity, and ridership. The recommendations are as follows. • Adopt Transit-Supportive Land Use Policy

Given that land use affects transit ridership and that development is a slow process, land use policy is needed now to make the developing area better suited for transit by the time that congestion makes BRT a more feasible alternative. The policies needed would support the following development patterns. - Development should occur first in the BRT corridors. More specifically, areas

with good access to the BRT corridors should be developed prior to outlying areas so that BRT could become a realistic alternative to driving

- Development in the BRT corridors should be at higher densities than what now prevails in the Kenton County Comprehensive Plan.

- Development in the BRT corridors should include commercial and service facilities.

4- 5

• Preserve Needed Right-of-Way By preserving right-of-way before it is developed, the cost of right-of-way would

be less at the time of purchase, which in turn would lower the cost for constructing a BRT system and make implementation more feasible. For preserving right-of-way, the county subdivision regulations need to be amended to prevent structural facilities from being developed in prospective right-of-way (15 feet on either side of the corridors proposed for BRT).

• Purchase Needed Right-of-Way It is recommended that KYTC purchase right-of-way for BRT (15 foot strips on

either side of a roadway) in the course of purchasing right-of-way for capacity expansion projects. This strategy could be applied to parts of Turkeyfoot (KY-1303), KY-16, and KY-536 (more detail in Table 4-1).

• Conduct a Conceptual Design Study for a BRT System This study would be a guide for constructing a BRT system and integrating BRT

into TANK’s existing bus service. The study, estimated at $450,000, depends on county initiative. It would include an identification of locations for stations and park-and-ride lots and estimates of BRT ridership and cost. It would provide a basis for designing a BRT system to serve major travel destinations, including those in Boone and Campbell Counties, such as the airport and the Northern Kentucky University.

The recommendation for a BRT system has received strong local support, and some initiative has already been taken on the recommendations for advancing BRT. • The Task Force supported the BRT recommendations without objection. • The Northern Kentucky Area Planning Commission proceeded to formally

request the Kenton County Planning Commission to amend the county Comprehensive Plan to support a BRT system.

• The Kenton County Planning Commission amended the county Comprehensive Plan to identify the recommended BRT corridors and to recommend sufficient right-of-way (at least 15 feet) on either side of the proposed BRT corridors for use as exclusive travel lanes, provisions for higher densities of residential development and mixed-use developments around proposed BRT stations, and the focus of development along the proposed BRT corridors.

• The Kenton County Planning Commission has begun the process for amending the county subdivision regulations to make them consistent with the amended county Comprehensive Plan and enable implementation of the amendments.

4- 6

CHAPTER 5

STATE AND FEDERAL ROADS The recommendations for improving State Roads (includes federal roads) are divided into two categories: Priority Projects and Needed Projects. The recommendations will be incorporated into regional and state plans and programs that provide the basis for funding and implementation. THE FOCUS OF RECOMMENDATIONS The Roadway Network This chapter is focused on State Roads – which refers to both state and federal roads – as one of three categories of roads in Kenton County. The three categories are based on the level of government responsible for roadway improvements and maintenance and based on the source of funding for improvements. • The category of State Roads as referenced in this plan includes federal roads –

both interstate highways and U.S. routes – in addition to state routes. All of the State Roads are the responsibility of the Kentucky Transportation Cabinet, or KYTC (the federal government delegates responsibility for maintenance to the state government but retains an oversight role to insure compliance with federal standards). State Roads carry the heaviest traffic volumes, provide for freight and commodity transport, and provide connectivity with county and municipal roadways. Funding is provided from several federal and state programs (see Chapter 9), but federal and state gasoline taxes are the primary funding sources for improvements and maintenance.

• The County Roads (see Chapter 6) are owned and maintained by Kenton County.

The county has primary responsibility for funding improvements and maintenance.

• Local Roads (not addressed in this plan) are the responsibility of municipal

governments. Local roads are primarily made up of subdivision streets. Scope of the Recommendations This plan’s recommendations for improving State Roads were developed through a comprehensive review of transportation needs that involved the public in determining what transportation improvements are needed and which improvements are needed

5-1

most. As time passes and conditions change, the recommendations will need to be periodically reviewed and updated. Future revisions to this plan will affect recommendations for individual projects, but the underlying focus of the recommendations is likely to remain the same. The focus of the recommendations addresses the following transportation needs: • improve mobility in the developing part of the county, • improve Kenton County’s connectivity with the regional and national highway

systems, and • address problems on congested segments. These needs are addressed by recommended improvements as summarized below. Collectively, a major impact of the recommendations for State Roads is the evolution of an upgraded roadway network to serve the developing area in the northern half of Kenton County. This roadway network frames the developing area and adds some internal east-west connectors. The northernmost part of the frame is I-275, which is recommended for expansion, and the southernmost part is KY-536, which is recommended for widening in three phases. These two east-west roads are connected by Turkeyfoot (KY-1303) on the west (widening is in progress, committed, or recommended) and Taylor Mill Road (KY-16) on the east (widening is committed or recommended). The framework is divided by north-south KY-17 (widening is recently completed or committed) and bisected east-west by linking and improving roadway segments between Industrial Road and the junction of Wayman Branch and Ky-16 (recommended). Two more combinations of roadway improvements would improve east-west connectivity between KY-17 and KY-16 south of Wayman Branch. In this network, east-west improvements will also improve north-south connectivity. Another major impact of the recommended improvements is to expand the county’s connectivity within the metropolitan area and with the national highway network. The connectivity improvements involve recommendations to replace and expand the Brent Spence Bridge over the Ohio River, add more lanes to I-75 between the Brent Spence Bridge and I-275, replace and expand the 4th Street Bridge over the Licking River, build a new bridge over the Licking River that would improve an industrial area’s connection with I-275 and the AA Highway, and expand roadways connecting with Boone County (Dolwick Road and Commonwealth Avenue). A third major category of recommendations is focused on reducing congestion and improving safety on State Roads. Most of these recommendations address problem areas on congested segments that serve the developed parts of the county north of I-275, but recommendations also would improve Dixie Highway (U.S.25) into Boone County (south of I-275) and key intersections in the rural part of the county.

5-2

Process for Developing Recommendations The first step in developing recommendations for State Roads was to identify the improvements needed. Following a comprehensive inventory process and evaluation, the need for 31 improvements was identified, at an estimated cost of nearly $1.4 billion. These projects are divided into Priority Projects, for which funds are expected to be available, and Needed Projects, for which funds are not expected to be available. In addition, some improvement projects are underway or scheduled for implementation, as presented in the next section on Committed Projects. The process of identifying needed projects involved input from the Task Force, public review and comment, and a review of other plans. The plans reviewed included the Central Area Loop Study, the Kenton County Comprehensive Plan (Northern Kentucky’s Future, A Comprehensive Plan for Development, Update: 2002-2021), the regional long-range transportation plan (OKI 2030 Regional Transportation Plan), and the Kentucky Six-Year Highway Plan. The list of needed projects was refined based on current status of project need, a comparison that identified overlaps with other needed projects, and consultation with local planning and transportation agencies. As it became apparent that the need for transportation improvements exceeds the revenues that can reasonably be expected to be available for implementation, the needed projects were prioritized. This process involved estimating project costs, estimating funds likely to be available through 2030 from the different transportation funding sources (see Chapter 9), and taking account of Task Force concerns, the plan goals, and the need to balance the county’s many different needs for improving transportation. COMMITTED PROJECTS Committed Projects are the capacity expansion projects that are either under construction or expected to be implemented in the near future. The projects are “committed” by virtue of their inclusion in the Transportation Improvement Program (TIP) prepared by OKI for the metropolitan area. The TIP is a programming document for scheduling and funding the phases of project implementation: preliminary engineering and environmental impact studies, design, right-of-way acquisition, utility relocation, and construction. Projects must be included in the TIP in order to be eligible for federal funding. Kenton County has twelve projects in the TIP (Fiscal Years 2002-2005, as amended), for a total cost of $198,710,000. These projects are presented in Figure 5-1 and Table 5-1. In general, the projects either expand highway capacity in the developing area or improve access to some of the major employment centers (Riverfront/Covington downtown, commercial area at the interchange of I-75 and I-275, Northern Kentucky Industrial Park, and Fidelity Center).

5-3

Table 5-1. Committed Projects for State Roads Millions $ • I-75 Brent Spence Bridge Conduct feasibility and constructability study 2.00 • KY-1120/12th St. from I-75 to Scott Widen to 4 lanes 14.94 • KY-16/Taylor Mill from I-275 to Hands Widen to 5 lanes 64.00 • KY-16 at KY-536 west Improve intersection 0.29 • KY-17 from Pelley to KY-16 Widen to 5 lanes on new alignment 26.00 • KY-536/Mt.Zion/Bristow/Shaw from Boone Co. line to KY-17 Widen to 5 lanes 21.46 • KY1072/Highland Extension from KY-17 to KY-16 Build 2 lane facility on new alignment 9.00 • KY-1303/Turkeyfoot from Dudley to Lindenwood Widen to 5 lanes 8.00 • KY-1303/Turkeyfoot from Lindenwood to Autumn Widen to 5 lanes 13.62 • KY-1303/Turkeyfoot from Autumn to W. Richardson Widen to 5 lanes 11.40 • KY-1829/Industrial from Boone Co. (U.S.42) to KY-1303/Turkeyfoot Widen to 5 lanes 12.00 • New Dolwick Connector from Dolwick to Erlanger-Crescent Spring Build 2 lane facility on new alignment 16.00 Total Cost of Committed Projects $198.71

RECOMMENDATIONS: PRIORITY PROJECTS The Priority Projects are the improvements most needed for State Roads in Kenton County. Based on funding expectations, it is possible that all of the Priority Projects will be committed to funding before 2030. There are 15 Priority Projects that together cost an estimated $681,560,000. Two thirds of this cost (68%) is for the Brent Spent Bridge replacement, which is estimated to cost $465,000,000. Given the magnitude of this project and its importance for national commerce, it is assumed that this project would involve special funding from Congress, or otherwise the state would determine how the project is to be funded. Priority Projects are presented in Table 5-2 and Figure 5-1.

5-4

Figure 5-1. Recommended Improvements for State Roads

5-5

Table 5-2. Priority Projects for State Roads Improvements to East-West Travel Millions$ KY-1829/Richardson & Old KY-17/Madison from KY-1303/ Turkeyfoot to KY-1501/Hands Pike Widen to 5 lanes 74.00 KY-1501/Hands & Wayman Branch from KY-17 to KY-16 Widen to 3 lanes 37.50 KY-536/Harris from KY-17 to KY-16 Widen to 3 lanes 16.90 KY-8/4th Street Bridge over the Licking River Replace and add 1 lane 18.50 Improvements to North-South Travel I-75/Brent Spence Bridge Replace with a new 10 lane bridge 465.00 KY-1303/Bristow from Richardson to KY-536 Widen to 5 lanes 11.20 KY-16/Taylor Mill from Hands to KY-536 Widen to 5 lanes 30.70 Studies for Operational Improvements U.S.25/Dixie from Boone Co. line to I-75 in Covington Improve traffic operations .45 KY-17 major intersections from Kyles to Dudley & west to Horsebranch & Orphanage, including I-275 ramps Improve traffic operations .80 KY-1303/Turkeyfoot from U.S.25/Dixie to Dudley Improve traffic operations 1.20 KY-17/Madison/Scott/Greenup from 3rd to 26th Improve traffic operations (& shift KY-17 designation) 2.00 KY-16/177/Madison-James-Decoursey from 26th to Grand Improve traffic operations 1.00 Implementation of Operational Improvements KY-8/4th and 5th Streets in Covington (including some inter-connecting streets, I-75 approach lane, & Clay Wade Bailey Bridge southbound exit ramp) Improve traffic operations as recommended in the the Central Area Loop Study 1.41 U.S.25/Dixie from KY-236/Commonwealth to Hallam Add 1 lane 18.00 KY-17/Madison from Latonia Ave. to 26th Implement operational improvements (remove parking) 2.90 Total Cost of Priority Projects $681.56

5-6

Improvements to East-West Travel One of the major transportation needs identified by the Task Force early on was to improve east-west travel. Due to the county’s terrain, many of the east-west roads are hilly and curving, with vertical and horizontal alignments that make them more hazardous as traffic volumes increase. Topographic conditions add to the expense of widening and reconstructing these roads. In the case of the area between KY-16 and Decoursey Pike (KY-177) sandwiched between I-275 and Kleete Road, the steepness of the gradient makes it cost-prohibitive to expand any existing or build any new east-west road that would meet state standards. The following Priority Projects for expanding capacity to improve east-west travel are all in the developing area and/or on congested roadway. • Build an east-west connector between Turkeyfoot Road (at Industrial Road)

and KY-16 (at Wayman Branch Road): This connector is a combination of two Priority Projects: the widening of Richardson Road (KY-1829) and Madison Pike (Old KY-17) between Turkeyfoot Road (KY-1303) and KY-17 from two lanes to five lanes, and the widening of a short segment of Hands Pike (KY-1501) and all of Wayman Branch (a county road) between KY-17 and KY-16 from two lanes to three lanes.

This project was selected as the best option for improving east-west mobility in

the developing area. It would provide an expanded, safer east-west corridor for improving mobility in the center of the county’s developing area, sandwiched between I-275 and KY-536, where rugged terrain has inhibited the development of an efficient roadway system. It would both enable east-west travel continuity and improve connectivity with north-south routes. The improvement is divided into two projects because of the high cost.

• Widening Harris Pike (KY-536) between KY-17 and KY-16 from two lanes

to three lanes: This project advances the development of a mid-county east-west corridor between Boone and Campbell County. KY-536 marks the southern edge of Kenton County’s developing area (the boundary of the Urban Service Area as shown in the Recommended Land Use element of the county Comprehensive Plan). This road is already programmed for widening west of KY-17 (included in the TIP) to the Boone County line, and it is earmarked for widening east of KY-16 to Campbell County as a future phase (described in the following section on “Other Needed Projects”). KY-536 at Visalia is the most southern of Kenton County’s four Licking River crossings.

• Replacing the bridge over the Licking River on Fourth Street (KY-8) and

adding a lane: This project is important both for reducing congestion in the urban area and for improving connectivity between Kenton and Campbell Counties in the urban core.

5-7

Improvements to North-South Travel Priority Projects that expand capacity to improve north-south travel are focused on major corridors. Three of the county’s four major north-south corridors are recommended for Priority Projects. These projects extend widening projects that are already in progress or committed, or they widen a congested segment. All of the projects improve continuity of traffic flow and reduce congestion problems that affect commuter and commercial traffic. • Replacement of the Brent Spence Bridge with a new ten-lane bridge: The

Brent Spence Bridge, which is described as “functionally obsolete” by the Federal Highway Administration, is already included in the TIP for a Feasibility and Constructability Study to determine the cost and location of the bridge replacement as well as to address other issues. The bridge has an Average Daily Traffic volume of 150,000 vehicles, which is about twice its design capacity. Traffic includes 20,000 - 30,000 trucks per day. This project is important not only for Kenton County commuting and commerce, but also for transportation at metropolitan and national levels.

• Widening Bristow Road (KY-1303), which is an extension of Turkeyfoot

Road, between West Richardson Road and KY-536 from two lanes to five lanes: This project would provide five-lane continuity in the developing area. It is the link between Turkeyfoot Road to the north and KY-536 to the south, both of which are currently in the TIP as committed projects for widening.

• Widening Taylor Mill Road (KY-16) between Hands Pike (KY-1501) and

KY-536 from two lanes to five lanes: This project would extend five-lane continuity along Taylor Mill Road by connecting on the north with a segment of Taylor Mill Road already programmed for widening and connecting on the south with KY-536 where it is recommended for widening as another Priority Project.

Studies for Operational Improvements Priority Projects include operational studies for five of the county’s most congested areas. The purpose of these studies is to determine the best strategy for improving roadway operation as a means of reducing congestion and optimizing traffic flow. The strategies would be a combination of improvements, such as better traffic signal coordination, additional turn lanes at intersections, removal of parking, synchronization of signals with the areawide system, access management, and capacity expansion. These studies are a prerequisite to resolving problem areas and improving the performance of the existing highway system. Operational studies are recommended for the following roadways. • Dixie Highway (U.S. 25) from Boone County to I-75 in Covington: Dixie

Highway was cited early on by the Task Force as the county’s most important transportation need, and later as the number one priority project. These

5-8

distinctions helped for Dixie Highway to be selected for funding for a Transportation and Traffic Management Study. The study will provide specific recommendations for how to improve traffic flow in this corridor, which will likely involve coordinating traffic signal systems, expanding intersections, expanding certain segments, consolidating access points to businesses, installing signal pre-emption devices for emergency vehicles, and interconnecting Dixie Highway with ARTIMIS. The cost of the study is $450,000, of which 80% is from federal sources, 10% from KYTC, and 10% from the Kenton County Fiscal Court.

• KY-17 and intersections from Kyles to Dudley and west to Horsebranch and

Orphanage, including the I-275 ramps: This study would address congestion problems on KY-17 between Kyles Lane and Dudley Pike, inclusive of the interstate ramps and all the side streets (including Highland Avenue).

• Turkeyfoot Road (KY-1303) between Dixie Highway (U.S. 25) and Dudley

Pike (county road): This study would also address problems related to the intersection with the Thomas More Parkway.

• Madison Avenue/Scott Street and Greenup Streets (KY-17) between 3rd and

26th Streets: This study would include recommendations for shifting the KY-17 designation from Scott and Greenup Streets to Madison, including where the shift should occur and how to facilitate it.

• Madison/James/Decoursey (KY-16/KY-177) between 26th Street and Grand

Avenue: This study would develop a comprehensive strategy for reducing congestion on this segment in place of a series of projects that address problems individually.

Implementation of Operational Improvements The Priority Projects include a series of operational improvements recommended in the Central Area Loop Study and two projects to relieve major bottlenecks and reduce safety problems on heavily traveled roadway segments. All of these projects are relatively low cost. • Improvements to traffic operations on 4th and 5th Streets in Covington (KY-

8), including some inter-connecting streets, the I-75 approach lane, and the Clay Wade Bailey Bridge southbound exit ramp, as recommended in the Central Area Loop Study: The Central Area Loop Study (2001) was commissioned by OKI and directed by an advisory committee that represented Cincinnati, Covington, Newport, TANK, Metro/SORTA, and the Ohio and Kentucky state transportation departments. The study involved an assessment of traffic congestion on 4th and 5th Streets in Covington and Newport as a basis for improving traffic in downtown Covington in the 10-15 year interval before the Brent Spence Bridge is replaced. The recommendations are for replacing and

5-9

expanding the bridge over the Licking River and for a variety of relatively low cost operational improvements to enhance traffic flow through congested areas. The recommendations are detailed in the study and summarized below. - Relocate the Clay Wade Bailey Bridge (U.S. 42/ U.S. 127) southbound exit

ramp so that traffic moves onto 4th Street west of the Main Street intersection. - Modify the CSX railroad bridge supports on Main Street (U.S. 42/U.S. 127)

between 4th and 5th Streets to provide for four-lane continuity and install changeable message signs to alert traffic to lane changes needed at the intersections.

- Widen 4th Street (KY-8) from I-75 to Philadelphia Street to enable this segment to serve as an approach lane to I-75, and implement several inter-related operational improvements for enhancing traffic flow, including improved signal timing at 5th and Gerrard Streets, 4th and Bakewell Streets, and 5th and Philadelphia Streets; the conversion of Philadelphia and Bakewell Streets to one-way operations between 3rd and 5th Streets; and curb-cuts and parking removal to widen intersections at 4th and Johnson Streets and at 5th and Russell Streets.

• Addition of one lane for a two-block length on Dixie Highway (U.S. 25)

between Commonwealth and Hallam at a rail overpass: At this location, the road narrows because of the overpass structure, causing congestion and a safety hazard.

• Provisions to remove parking on Madison Avenue (KY-17) between Latonia

Avenue and 26th Street: The removal of parking would create an additional lane that would reduce congestion. This project would involve adding signs and pavement markings and building off-site parking.

RECOMMENDATIONS: NEEDED PROJECTS There are 14 “Needed Projects” for which funds are not expected to be available until after 2030. The Needed Projects are presented in Table 5-3 and Figure 5-1 for an estimated cost of $677,100,000. Assuming that the projects in this category remain unfunded until after 2030, Kenton County will experience increasing levels of congestion that will affect commuter and commercial traffic. Widening of Interstate Segments OKI’s travel demand model indicates that I-75 and I-275 in Kenton County will be carrying larger traffic volumes in the future that will warrant interstate widening, as indicated below. The combined cost of these three projects is $534,500,000, which represents 79% of the total cost of Needed Projects.

5-10

Table 5-3. Needed Projects for State Roads Widening of Interstate Segments Millions$ • I-75 from Brent Spence Bridge to KY-1072/Kyles Lane Add 2 lanes 100.00 • I-75 from KY-1072/Kyles Lanes to I-275 Add 2 lanes 217.50 • I-275 from I-75 to Campbell Co. (KY-9/AA Highway) Add 2 lanes 217.00 Major Capacity Expansion Projects • KY-536/Staffordsburg/Visalia from KY-16 to KY-177/Decoursey Construct 2 lanes on new alignment 17.80 • KY-2047/Senour & Pelley from KY-17 to KY-16 Widen to 3 lanes 14.20 • KY-2045/McCullum-Oliver-Cox from KY-17 to KY-16 Reconstruct 8.20 • KY-16 from KY-536 to KY-17 Widen to 5 lanes 24.30 • KY-236/Commonwealth from Boone Co. (Cherry Tree) to U.S.25/Dixie Add 2 lanes 16.70 Widening and Other Improvements • KY-17 at Moffet Improve intersection 3.50 • KY-17 at Rich (KY-14) Improve intersection 2.50 • KY-371/Buttermilk from Hazlewood to Bills Ln. (I-75 crossing) Add 2 lanes 14.80 • KY-1017/Dolwick from Boone Co. (Mineola) to new Dolwick Connector Widen to 3 lanes 6.00 • KY-1072/Kyles from I-75 to Highland Add 1 lane 6.00 • New bridge over Licking River from KY-1930/Locust to KY-9/AA Hwy Construct bridge and connector 28.60 Total Cost of Needed Projects $677.10 • Widening I-75 from the Brent Spence Bridge to Kyles Lane by adding two

additional lanes: This improvement is needed to provide continuity with an expanded Brent Spence Bridge, which in turn is needed to accommodate future traffic volumes. This project should be designed and implemented in coordination with the Bridge replacement.

5-11

• Widening I-75 from Kyles Lane to I-275 to add two additional lanes: This improvement, like the preceding one, is needed for continuity and for accommodating future traffic volumes.

• Widening I-275 from I-75 to Campbell County/AA Highway by adding two

lanes Major Capacity Expansion Projects • Reconstructing Staffordsburg and Visalia Roads (KY-536) as two lanes on

new alignment: This project would complete the upgrading of KY-536 as an expanded travel corridor between Boone and Campbell Counties, with connections to Kenton County’s major north-south roads.

• Widening Senour (KY-2047) and Pelley Roads between KY-17 and KY-16

from two to three lanes: This project would address the need for increased capacity and safety as a connector to major north-south roads in the developing area.

• Reconstructing McCullum, Oliver, and Cox Roads (KY-2045) between KY-

17 and KY-16: These three roads would be realigned and widened to function as an east-west connector between two major north-south roads in the developing area.

• Widening KY-16 between KY-536 and KY-17 from two lanes to five lanes:

This project would provide continuity by linking a five-lane segment of KY-17, as committed in a TIP project, with a five-lane segment of KY-16, as recommended in a Priority Project.

• Widening Commonwealth Avenue (KY-236) between Boone County (at

Cherry Tree Lane) and Dixie Highway (U.S. 25) by adding two lanes: This project, which involves 1.34 miles, is needed to reduce congestion and improve safety.

Widening and Other Improvements • Re-aligning the intersection at KY-17 and Moffet Road: This project would

improve safety for travel in the rural part of the county south of KY-536. • Re-aligning the intersection at KY-17 and Rich Road: This intersection needs

to be re-aligned to improve safety at the intersection and also for accessing Piner School in the rural part of the county south of KY-536.

5-12

• Widening of Buttermilk Pike (KY-371) at the I-75 crossing between Hazlewood Road and Bills Lane by adding two lanes: Widening of this .6 mile segment would reduce congestion and improve safety.

• Widening Dolwick Lane (KY-1017) between Boone County (to Minneola

Pike) and the new Dolwick Connector to three lanes: Widening is needed to provide continuity for traffic flow.

• Widening Kyles Lane (KY-1072) between I-75 and Highland Avenue by

adding one lane: An additional lane is needed to reduce congestion. • Constructing a new bridge over the Licking River to connect Locust Road

(KY-1930) with the AA Highway (KY-9) in Campbell County: The bridge would provide direct access to the AA Highway, which connects with I-275, to industrial sites on Locust Road that are currently accessed by rail and by Decoursey Pike (KY-177).

ADVANCEMENT TOWARD IMPLEMENTATION This plan will be used for advancing recommended projects to implementation. Its recommendations will be accounted for in plans developed by the NKAPC, OKI, and the KYTC that move projects toward funding and implementation. Because these agencies have different plan update schedules, it will take some time for all of the plans to become consistent. At the regional level, OKI is the designated Metropolitan Planning Organization (MPO) responsible for transportation planning. OKI prepares a short-range planning document called the Transportation Improvement Program (TIP) that applies to a four-year planning period and is updated every two years. OKI also prepares a long-range transportation plan, which currently applies to 2030, that is updated every three years. Both of these documents can be amended in the intervening years if warranted. To be eligible for federal funding, projects must be included in the TIP. To be included in the TIP, projects must first be recommended in the long-range transportation plan. As the TIP and the long-range transportation plan move through their update cycles, the processes for coordination and prioritization will take account of this plan’s recommendations. At the state level, KYTC is responsible for preparing a Six-Year Highway Plan, which schedules projects for funding, and an Unscheduled Needs List, which is updated every two years for input to the Six-Year Plan. The Six-Year Plan is prepared for the Governor for consideration by the General Assembly. Reportedly, 90% of the projects selected for inclusion in the Six-Year Plan are also included in the Unscheduled Needs List.

5-13

The Unscheduled Needs List is a comprehensive list of transportation needs identified at four government levels: local, regional (OKI), KYTC district, and state. It presents these transportation needs as high, medium, or low priority as classified at each level. Needs identified as a high priority at all four levels are eligible for inclusion in the Six-Year Plan. The Unscheduled Needs List was undergoing an update process at the same time that this plan was being developed. Because of the timing for different types of input, the most recent version of the Unscheduled Needs List accounts for this plan but is not entirely consistent with it. At the local and regional levels, input to the Unscheduled Needs List was consistent with this plan in that Priority Projects were classified as “high priority” and Other Needed Projects were classified as “medium priority.” As a result, these or similar recommended improvements are included in the Unscheduled Needs List. In the future, without the timing constraints involved in the most recent update, the Unscheduled Needs List should be more consistent with the county transportation plan. This county plan provides a sound basis for local, regional, and state agencies to coordinate their perspectives on transportation needs and priorities. With time, this coordination can evolve into a process that optimizes the opportunity for Priority Projects to advance to the Six-Year Plan.

5-14

CHAPTER 6

COUNTY ROADS The Primary County Roads were assessed for conditions that indicate their need for improvement. This chapter presents 1) the results of the assessment and 2) priorities for improvements related to safety, upgrading to standards, and expanding capacity. In conjunction with this plan, a database has been developed to help the county manage maintenance and improvement needs. ASSESSMENT OF PRIMARY COUNTY ROADS Kenton County has ownership and responsibility for about 150 miles of roads. Through discussion with the county’s Public Works Department, 86.1 miles of roadway were identified as Primary County Roads for this study. The entire county road system is important, but a level of “priority” was assigned for identifying needed improvements. In addition to the Primary County Roads, 34 intersections were included for assessment purposes.

The selection of Primary County Road segments and intersections for evaluation in this study was based on consultation with the county’s Public Works Superintendent. The criteria set forth for selecting the road segments and intersections were based on “functional” classification, potential for significant growth (5-10 years), capacity constraint, and engineering and administrative experience. Figure 6-1 shows the location of the primary road segments and intersections. The roads are listed in Table 6-1. The Primary County Road system was assessed for the following conditions::

• Traffic Volumes • Bridge Conditions • Pavement Widths • Pavement Conditions • Pavement Markings • Signage Conditions • Intersection Capacity and Alignment • Roadway Levels of Service • Railroad Crossing Conditions • Accident Rates • Guardrail Conditions • Bus Transit Routes • Transportation Service Area (indicator of the location of roadway in relation to

existing and anticipated development)

6-1

Figure 6-1. Primary County Roads and Intersections

6-2

Table 6-1. Primary County Roads 1. ALEXANDER ROAD 19. GRAND ROAD 37. OLD TAYLOR MILL

2. AMSTERDAM ROAD 20. GRAVEN ROAD 38. OLIVER ROAD

3. ANDERSON ROAD 21. HIGHLAND PIKE 39. PELLY ROAD

4. BRAMLAGE ROAD 22. HIGHWATER ROAD 40. PERCIVAL ROAD

5. BROMLEY-CRSCNT. SPR. 23. HOGREFFE ROAD 41. PORTER ROAD

6. BUFFINGTON ROAD 24. INDEPEN. STATION 42. RECTOR ROAD

7. BULLOCK PEN ROAD 25. INDEPENDENCE RD. 43. REIDLIN ROAD

8. BUTTERMILK PIKE 26. KENTON STATION 44. ROGERS ROAD

9. CODY ROAD 27. LAMBS FERRY ROAD 45. ST. MARY ROAD

10. CONLEY ROAD 28. LOCUST PIKE 46. STAFFORDSBURG

11. CRUISE CREEK ROAD 29. MAHER ROAD 47. STEEP CREEK ROAD

12. DIXON ROAD 30. MANN ROAD 48. STEPHENS ROAD

13. DUDLEY ROAD 31. MARSHALL ROAD 49. SUGARCAMP ROAD

14. ERLANGER-CRSCNT. SPR. 32. MARTIN ROAD 50. WAYMAN BRANCH

15. ERLANGER ROAD 33. MASON ROAD 51. WESTERN RESERVE

16. FEISER ROAD 34. MILLS ROAD 52. WILSON ROAD

17. GARDNERSVILLE 35. NARROWS ROAD 53. WOLF ROAD

18. GARVEY ROAD 36. OLD KY 17 54. WRIGHT ROAD The results of the assessment provide the basis for prioritizing needed improvements, for which costs and funding issues are presented in Chapter 9. The assessment has been provided in database format to the county’s Public Works Department for tracking and updating needed improvements. A data base was established using the NKAPC’s Geographic Information System (GIS). The system is designed so that information can be updated. The results of the assessment, as presented in the following pages, are summarized below, as an indication of the need for improvement. • None of the bridges are in critical or poor condition. • The pavement width of 49 % of the roads is below a standard width of 20 feet. • The pavement condition of 56% of the roads is in poor or very poor condition. • The pavement markings on 80% of the roads are in fair or poor condition or are

non-existent. • The signage on 88% of the roads is in fair or poor condition or missing. • The 34 intersections assessed have adequate capacity; 14 intersections need

geometric re-alignment. • Parts of seven roadways warrant capacity expansion to accommodate future

traffic. • The four at-grade railroad crossings are in good condition.

6-3

• Among four categories of accident rates, all of the roads except four are in the lowest/best category and none of the roads in the highest/worst category.

• Guardrails on 13% of the roads are in fair condition. Traffic Volumes The traffic volumes of Primary County Roads, as shown in Figure 6-2, represent the Average Daily Traffic (ADT; the average weekday, 24-hour, two-way traffic volume). These ADT counts are used for determining if roadways are at, below, or above capacity, as indicated by Level of Service (LOS; presented later in this chapter). The data used for calculating the ADTs were taken during the months of December 2001 and January 2002 using automatic 24-hour machine recorders. The ADTs were used to classify the Primary County Roads into six categories. The category with the highest volume is “Over 10,000,” which includes most of Dudley Pike and small segments of Amsterdam, Anderson, Erlanger Crescent Springs, and Independence Station Roads. The category with the lowest volume is “0-700 ADT,” which applies to most of the Primary County Roads south of KY-536 and also many of the Primary County Roads on the eastern side of the county between KY-536 and I-275. Bridge Conditions Bridges on Primary County Roads were identified and classified with regard to their condition, as presented in Figure 6-3 and Table 6-2. The conditions were determined by the Kentucky Transportation Cabinet in its annual bridge sufficiency reports for 1999, 2000, and 2001. For the 21 bridges for which Kenton County is responsible, conditions are reported as good, OK, or fair. The fact that none of the bridges are in critical or poor condition is commendable for a county of this size with high proportions of suburban and rural agricultural land use.

Table 6-2. Bridge Conditions on Primary County Roads Condition % Number

Good 28% 6 OK 48% 10 Fair 24% 5 Poor - - Critical - - Total 100% 21

6-4

Figure 6-2. Primary County Roads - Existing Traffic Volumes

6-5

Figure 6-3. Primary County Roads – Bridge Sufficiency

6-6

Pavement Widths The Primary County Roads were measured for pavement width and divided into two categories, as indicated in Figure 6-4 and Table 6-3. A road width of 20 feet or more is considered adequate, whereas a road width of less than 20 feet wide is considered to be below standard. The national engineering standard width for a two-lane highway is 24 feet (12 feet per travel lane), but a narrower standard was considered acceptable given Kenton County’s rural and suburban character. Based on consultation with the NKAPC, 20 feet was selected as an acceptable minimum standard for pavement width (ten foot width for each direction), which is consistent with the Subdivision Regulations for Kenton County.

Table 6-3. Pavement Widths on Primary County Roads Pavement Width % Mileage

Standard (20' or more) 51% 43.5 Below standard (less than 20') 49% 42.6 Total 100% 86.1

Pavement Conditions The visual surface of the Primary County Road system was assessed and roads were categorized for their condition, as shown in Figure 6-5 and Table 6-4. The conditions are defined as follows. • Excellent or Good - Pavement shows no or few visible signs of surface

deterioration; pavement may have hairline cracks or minor rutting. • Fair - Pavement has visible defects, including moderate cracking, distortion, and

rutting; some patching may be present. • Poor or Very Poor - Pavement shows extreme or complete deterioration, with

defects that include severe cracking, distortion, and rutting; pavement has extensive patching or no structural integrity or salvage value.

Table 6-4. Pavement Conditions on Primary County Roads

Pavement Condition % Mileage Excellent 8% 6.5 Good 36% 30.9 Fair 34% 29.5 Poor or very poor 22% 19.2 Total 100% 86.1

6-7

Figure 6-4. Primary County Roads – Pavement Widths

6-8

Figure 6-5. Primary County Roads – Pavement Conditions

6-9

Pavement Markings Pavement markings, which are presented in Figure 6-6 and Table 6-5, are important as a safety issue. The presence and condition of markings are important for identifying proper channelization, lane delineation, and pavement edges. Pavement markings were assessed for roadways and intersections through field observations and were categorized for their condition, as indicated below. • Excellent and Good - Markings show no or few signs of deterioration, have bright

color, and are easy to read. • Fair - Markings show visible defects and deterioration. • Poor or Very Poor - Markings are severely or completely deteriorated or are

absent. As indicated below, one third of the Primary County Roads have markings in a poor or worst condition.

Table 6-5. Pavement Markings on Primary County Roads Pavement Markings % Mileage

Good 21% 17.8 Fair 46% 40.2 Poor or very poor 5% 4.1 None 28% 24.0 Total 100% 86.1

Signage Conditions Signs on Primary County Roads were assessed for their visual condition and placement, as presented in Figure 6-7 and Table 6-6. Similar to pavement marking conditions, the presence and sufficiency of statutory signage is important because of the information provided on road conditions and design constraints. It is important for signs to be good condition since they directly affect public safety. Signs were categorized as indicated below. • Good - Signs are relatively new, show little evidence of deterioration, and have

good reflectivity. • Fair - Signs have minor to moderate defects, slight fading, and slightly below

average reflectivity. • Poor - Signs have major defects – such as dents, holes, or bends – and poor

legibility. • No Signs - Signs have been removed from posts or need to be installed. The assessment indicates that 75% of the roads have signs in fair or poor condition, and an additional 13% of the roads are without needed or appropriate signage. The cost for installing or replacing signage is nominal in comparison to the litigation that can occur due to insufficient or lack of signage.

6-10

Figure 6-6. Primary County Roads – Pavement Markings

6-11

Figure 6-7. Primary County Roads – Signage Conditions

6-12

Table 6-6. Signage Conditions on Primary County Roads Signage Conditions % Mileage

Good 12% 10.6 Fair 54% 46.1 Poor 21% 18.4 No signs 13% 11.0 Total 100% 86.1

Intersection Capacities and Alignment As part of the Primary County Road system, 34 intersections were assessed (see Figure 6-1) for which Kenton County is responsible for maintenance. The assessment accounted for intersection capacity based on the roadway level of service (LOS) criteria, as shown for signalized intersections in Table 6-7 and for un-signalized intersections in Table 6-8. This criteria, which accounts for average delay, is used by the American Association of State Highway and Transportation Officials (AASHTO), the Kentucky Transportation Cabinet (KYTC), and municipalities.

Table 6-7. LOS Criteria for Signalized Intersections* Level of Avg. Delay/Vehicle Service* (Second) Description

A >10.0 Most vehicles do not stop at all B >10 to <20 More vehicles stop than for LOS A C >20 to <35 The number of vehicles stopping is significant

although many pass through without stopping D >35 to <55 Many vehicles stop. Individual cycle failures are noticeable E >55 to <80 Considered to be the limit of acceptable delay Individual cycle failures are frequent F >80.0 Unacceptable delay *LOS C and D are generally accepted as reasonable design criteria. LOS E and F are generally unacceptable.

Table 6-8. LOS Criteria for Un-Signalized Intersections* Level of Service* Delay/Second/Vehicle A < 10 B > 10 and < 15 C > 15 and < 25 D > 25 and < 35 E > 35 and < 50 F > 50 *LOS C and D are generally accepted as reasonable design criteria. LOS E and F are generally unacceptable.

6-13

LOS E and F indicate unacceptable levels of delay. The assessment, summarized in Table 6-9, indicates that all of the intersections functioned adequately during AM peak hours of 6:30 and 8:30 (at LOS A, B, or C), and all but one operated at a satisfactory level during the PM peak hours (3:30 to 6:00). The intersection at Anderson Road and Buttermilk Pike operated at LOS D during the PM peak hours, which is less than satisfactory but still considered acceptable.

Table 6-9. Intersection Capacities on Primary County Roads A.M. Peak P.M. Peak

% No. % No. LOS A 79% 27 70% 26 LOS B 12% 4 12% 4 LOS C 9% 3 9% 3 LOS D - - 3% 1 LOS E - - - - LOS E - - - -

Total 100% 34 100% 34 Whereas capacity is satisfactory, fourteen intersections were identified as having problems with geometric alignment. These problems were identified through field-work and consultation with the county’s Public Works Superintendent. Intersections that need to be improved for geometric alignment are listed below: • Bromley-Crescent Springs and Highwater Road • Feiser Road and Porter Road • Lambs Ferry Road and Whites Road • Mann Road and Steep Creek Road • Pelly Road and Sugar Camp Road • Martin Road and Staffordsburg Road • Reidlin Road and Mason Road • Amsterdam Road and Bromley-Crescent Springs Road/St. Johns Road • Amsterdam Road and Bromley-Crescent Springs Road • Locust Pike and Whites Road • Whites Road and Lambs Ferry Road (@ KY 1930) • Steep Creek Road and Case Road Roadway Capacity Roadway capacity is represented by Level of Service (LOS; the ratio of traffic volume to road capacity). An LOS of E indicates that a roadway is operating at capacity. An LOS of F indicates that traffic volumes exceed roadway capacity, which causes delay and increases the potential for accidents. The LOS was defined for Primary County Roads based on ADT, as presented in Table 6-10. Based on a review of volume thresholds for roads with similar

6-14

characteristics, it was determined that a typical Kenton County two-lane road, 20 feet wide, could sufficiently handle a two-way volume of approximately 5,000 vehicles per day.

Table 6-10. LOS Criteria for Primary County Roads ADT*

LOS A 0 -700 LOS B 701 - 2000 LOS C 2001 - 5000 LOS D 5001 - 8000 LOS E 8001 - 10,000 LOS F Over 10,000 * Average Daily Traffic

For calculating future LOS, future traffic volumes were projected based on expected growth. Each road’s ADT was multiplied by a growth rate related to the Transportation Service Area in which the road is located (Chapter 2). For Primary County Roads in the Urban, Suburban, and Rural TSAs, a growth rate of 0.5% per year was applied, which amounts to a growth of 10% over 20 years when compounded for 20 years. For roads in the Developing TSA, a growth rate of 1% per year was applied, representing a traffic increase of 20% over 20 years. The future LOS of the Primary County Roads is presented in Figure 6-8 and summarized in Table 6-11. The roads with a projected LOS of F are Dudley Pike, Grand, Independence Station, and parts of Amsterdam, Erlanger-Crescent Spring, Garvey, and Old Taylor Mill Roads.

Table 6-11. Future LOS on Primary County Roads % Mileage

LOS A - C 69% 59.4 LOS D 9% 8.1 LOS E 2% 1.4 LOS F 20% 17.2 Total 100% 86.1

6-15

Figure 6-8. Primary County Roads – Road Segment Capacity

6-16

Railroad Crossing Conditions The at-grade railroad crossings on the Primary County Roads were evaluated for overall condition, as presented in Figure 6-9. The condition of the warning device and gate, if applicable, were documented for overall safety concerns, and the crossing condition was field-checked and rated based on the following criterion. • Good - new crossing or newly surfaced • Fair - minor to moderate visible defects • Poor - major visible defects All four at-grade rail crossings that were field-checked are in good condition, but the presence of railroad pavement markings was not apparent. Accident Rates The accident rates on the Primary County Roads, as presented in Tables 6-12 and 6-13, were obtained from the Kentucky Safety Department for 1999, 2000, and 2001. The rate represents “accidents per million vehicles miles.” Data was also collected for traffic conflicts, which affect the potential for accidents. “Conflicts” is the number of minor road intersections and principal access driveways to abutting property between major road intersections.

Table 6-12. Accident Rates on Primary County Roads Road Segment Conflicts Acd.Rt. Road Segment Conflicts Acd.Rt. Alexander Road 4 1.1 Locust Pike 5 1.2 Amsterdam Road 19 1.3 Maher Road 2 1.0 Anderson Road 17 1.7 Mann Road 0 0 Bramlage Road 0 0 Marshall Road 11 1.2 Bromley Crescent 9 1.2 Martin Road 2 1.0 Buffington Road 0 0 Mason Road 0 0 Buttermilk Pike 67 2.4 Narrows Road 5 1.2 Cody Road 8 1.2 Old KY 17 1 1.0 Conley Road 0 0 Old Taylor Mill 41 2.0 Cruise Creek Road 0 0 Oliver Road 4 1.4 Dixon Road 0 0 Pelly Road 4 1.2 Dudley Road 32 1.4 Percival Road 0 0 Erlanger Crescent 7 1.4 Porter Road 1 1.0 Feiser Road 0 0 Rector Road 4 1.2 Gardnersville Road 1 1.0 Reidlin Road 0 0 Garvey Road 14 1.5 Staffordsburg 10 1.4 Grand Road 2 1.1 Steep Creek Road 1 1.0 Highland Road 36 2.4 Stephens Road 0 0 Highwater Road 1 1.0 Sugarcamp Road 2 1.0 Hogreffe Road 2 1.0 Wayman Branch 4 1.2 Independence Road 2 1.0 Wilson Road 7 1.2 Independ. Station 11 1.9 Wolf Road 3 1.2 Kenton Station 3 1.0 Wright Road 0 0 Lambsferry Road 0 0

6-17

Figure 6-9. Primary County Roads – Railroad Crossing Conditions

6-18

Table 6-13. Accident Summary for Primary County Roads Accident Rates % Number

Greater than or equal to 2.5 0 0 Greater than or equal to 2.0 but less than 2.5 6% 3 Greater than or equal to 1.5 but less than 2.0 6% 3 Less than 1.5 87% 41 Total 100% 47* * Data was not available for all roads

The roads with accident rates between 2.0 and 2.5 are Buttermilk, Highland, and Old Taylor Mill Roads. The roads with accident rates between 1.5 and 2.0 are Independence Station, Anderson, and Garvey Roads. Guardrail Conditions Guardrail conditions, as shown in Figure 6-10 and summarized in Table 6-14, were assessed for overall condition. The map also shows roads without guardrail, but this is not an assessment for safety or the need for installation. Adequate and sufficient guardrail is especially important on roadway where the terrain drops off at the pavement edge or shoulder. The visual condition of the guardrail was categorized based on the following criteria: • Good - new or newer guardrail showing few visible signs of deterioration • Fair - minor to moderate visible defects • Poor - major visible defects, including dents or missing or fragmented segments As indicated below, none of the guardrail is in poor condition; 13% is in fair condition, which is located on parts of Marshall and Old Taylor Mill Roads.

Table 6-14. Guardrail Conditions on Primary County Roads Condition %

Good 87% Fair 13% Poor - Total 100%

Bus Transit Routes The use of the Primary County Roads for bus transit is shown in Figure 6-11. Information on road use for public transit was obtained from the Transit Authority of Northern Kentucky (TANK). Information on road use for school buses was obtained from the Kenton County Public Schools – Department of Pupil Transportation. The NKAPC is working with TANK and the school system to obtain the bus route information for coding into their data base system.

6-19

Figure 6-10. Primary County Roads – Guardrail Conditions

6-20

Figure 6-11. Primary County Roads – Bus Transit Routes

6-21

As indicated on the map, nearly all of the roads are used for school bus routes (exceptions are Buffington and Dixon Roads). In addition, parts of Dudley, Highland, and Buttermilk Pikes and parts of Amsterdam and Western Reserve Roads are public transit routes. PRIORITIES FOR COUNTY ROADS A system for prioritizing the needed improvements to the Primary County Roads was developed based on the assessment of existing conditions. The prioritized improvements provide a basis for the county to formulate a funding and implementation strategy (Chapter 9).

After considering several procedures for ranking the roads with the greatest needs, a priority system was developed that uses three generalized measures: Safety, Upgrade to Standard, and Capacity. Each measure represents a different type of need to be addressed by the county. The Safety measure represents improvements needed to protect the county’s legal liability. Kenton County’s responsibility for ensuring that county roads operate as safely as possible is indicated by the following mandate (established by the subcommittee of the House Committee on Public Works of the Congress of the United States in July 1973):

“Whose responsibility is it to see that maximum safety is incorporated into our motor vehicle transportation system? On this, the subcommittee is adamant. It is the responsibility of Government and specifically those agencies that, by law, have been given that mandate. This responsibility begins with the Congress and flows through the Department of Transportation, its Federal Highway Administration, the State Highway Departments and safety agencies, and the street and highway units of counties, townships, cities and towns. There is no retreating from this mandate either in letter or in spirit.”

The measure called “Upgrade to Standard” represents the need for improvements to maintain the roadway infrastructure and prevent deterioration that would lead to greater expense in the long run. The Capacity measure indicates the need for expansion to address the impacts of future development, which is generally less costly if implemented before an area is fully developed.

Within each measure, each attribute was given a value based on its condition, which was used to rank the Primary County Road segments for improvement. Numeric values were assigned to the evaluation procedure, with the worst conditions receiving the highest scores. The attributes and corresponding values for the three roadway measures are summarized in Table 6-15 (the table also includes ranking criteria for factors included in the assessment for which improvements are not needed at this time but that may be added to the priority system in the future, such as bridges and railroad crossings).

6-22

Table 6-15. Criteria for Ranking County Road Improvements

Traffic Volumes (2-way daily traffic) Over 10,000 = 6 (LOS F) 8,001 – 10,000 = 5 (LOS E) 5,001 – 8,000 = 4 (LOS D) 2,001 – 5,000 = 3 (LOS C) 701 – 2,000 = 2 (LOS B) 0 – 700 = 1 (LOS A) Intersection Capacity LOS F = 4 LOS E = 3 LOS D = 2 LOS C or higher = 1 Pavement Width Below Standard (<20 feet) = 2 Standard (> 20 feet) = 1 Pavement Markings None = 4 Poor = 3 Fair = 2 Good = 1 Pavement Conditions Poor = 3 Fair = 2 Good = 1 Signage Conditions None = 4 Poor = 3 Fair = 2 Good = 1

Guardrail Conditions Poor = 3 Fair = 2 Good = 1 Bridge Sufficiency Critical = 4 Poor = 3 Fair = 2 Good = 1

Railroad Crossings None = 4 Poor = 3 Fair = 2 Good =1 Accident Rates Rate > 2.5 = 4 Rate > 2.0 = 3 Rate > 1.5 = 2 Rate < 1.5 = 1 Bus Transit Routes School and Tank = 2 School or Tank = 1 Transportation Service Areas Urban = 3 Suburban = 3 Developing = 2 Rural = 1

A priority list was developed for each measure that ranks the roadway segments for needed improvements. The priority lists were developed by applying the GIS to interface the criteria for ranking improvements and the Primary County Roads. The factors considered for each measure are identified below. The Priority Lists, factors, and conditions are presented in tables as indicated.

6-23

• The Safety measure, for which roadways are prioritized in Table 6-16, accounts for pavement markings, sign conditions, accidents, and guardrail conditions. The overall safety of the motoring public on the county’s roadway system is affected by the condition of the variables identified as part of the safety category. The sum total of all measures within the safety category is the basis for identifying the Primary County Road segments with the highest safety concerns.

• The Upgrade to Standard measure, for which roadways are prioritized in Table 6-17, focuses on the pavement width and conditions of the Primary County Roads. This category identifies the road segments that are currently below standards and require widening or reconstruction/rehabilitation. This measure also includes other attributes of the roadway that help define the relative importance of making improvements to meet standards. These other attributes include a road’s usage for Transit Routes (school bus and TANK) and its location within a Transportation Service Area (indicates the status of existing land use and expected development, as described in Chapter 2).

• The Capacity measure, for which roadways are prioritized in Table 6-18, focuses on the roadway level of service (LOS) under future conditions. In Kenton County, a two-lane road can sufficiently operate with a minimum two-way average daily traffic volume (ADT) of 5,000 vehicles. The system is expected to experience added delays and potential safety concerns when the ADT exceeds 5,000 vehicles. An LOS of A, B, or C was given to all roads with projected future volumes of 5,000 vehicles or less. An LOS of D, E, or F was given to roads with projected volumes, respectively, of 5,001-8,000, 8,001-10,000, and over 10,000.

6-24

Table 6-16. Priority Ranking for Safety Improvements TotalPts PavMark. Signage Accident Guardrail MARSHALL ROAD 11 3 4 1 3 LOCUST PIKE 9 4 4 1 OLD TAYLOR MILL 9 2 1 3 3 OLIVER ROAD 9 4 4 1 STEPHENS ROAD 9 4 4 1 ALEXANDER ROAD 8 4 2 1 1 CONLEY ROAD 8 4 3 1 NARROWS ROAD 8 4 2 1 1 PELLY ROAD 8 4 2 1 1 PORTER ROAD 8 4 2 1 1 BUTTERMILK PIKE 7 2 2 3 ERLANGER ROAD 7 4 2 1 FEISER ROAD 7 4 3 HIGHLAND PIKE 7 1 2 3 1 HOGREFFE ROAD 7 2 4 1 KENTON STATION 7 2 3 1 1 LAMBS FERRY ROAD 7 4 3 MAHER ROAD 7 1 4 1 1 MANN ROAD 7 4 3 MARTIN ROAD 7 2 3 1 1 MASON ROAD 7 4 3 RECTOR ROAD 7 4 2 1 REIDLIN ROAD 7 4 3 SUGARCAMP ROAD 7 2 4 1 WILSON ROAD 7 2 4 1 WOLF ROAD 7 2 4 1 ANDERSON ROAD 6 2 2 2 GRAND ROAD 6 2 2 1 1 GRAVEN ROAD 6 4 2 INDEPEND. STATION 6 1 2 2 1 ST MARY ROAD 6 4 2 STAFFORDSBURG 6 2 3 1 WRIGHT ROAD 6 4 2 AMSTERDAM ROAD 5 1 2 1 1 DUDLEY ROAD 5 2 2 1 GARDNERSVILLE 5 2 2 1 GARVEY ROAD 5 2 2 1 OLD KY 17 5 2 2 1 PERCIVAL ROAD 5 2 3 WAYMAN BRANCH 5 2 2 1 BROMLEY CRES. SPR. 4 1 1 1 1 BULLOCK PEN ROAD 4 2 2 CODY ROAD 4 1 2 1 CRUISE CREEK ROAD 4 2 2 DIXON ROAD 4 2 2 HIGHWATER ROAD 4 2 1 1 INDEPENDENCE ROAD 4 1 2 1 MILLS ROAD 4 2 2 ROGERS ROAD 4 2 2 WESTERN RESERVE 4 2 2 BRAMLAGE ROAD 3 2 1 BUFFINGTON ROAD 3 2 1 ERLANGER CRES. SPR. 3 1 1 1 STEEP CREEK ROAD 3 1 2

6-25

Table 6-17. Priority Ranking for Upgrading to Standards Total Pts. Pv. Width Pv. Condition TSA Transit Rt.

GARVEY ROAD 9 2 3 3 1 ERLANGER ROAD 9 2 3 3 1 REIDLIN ROAD 9 2 3 3 1 FEISER ROAD 8 2 3 2 1 GRAVEN ROAD 8 2 3 2 1 HOGREFFE ROAD 8 2 3 2 1 MARSHALL ROAD 8 2 3 2 1 OLIVER ROAD 8 2 3 2 1 STEPHENS ROAD 8 2 3 2 1 WRIGHT ROAD 8 2 3 2 1 ALEXANDER ROAD 7 2 3 1 1 LAMBS FERRY ROAD 7 2 3 1 1 LOCUST PIKE 7 2 3 1 1 WESTERN RESERVE 9 1 3 3 2 AMSTERDAM ROAD 9 2 2 3 2 OLD TAYLOR MILL 7 2 2 2 1 PELLY ROAD 7 2 2 2 1 STAFFORDSBURG ROAD 6 2 2 1 1 KENTON STATION 7 2 2 2 1 SUGARCAMP ROAD 7 2 2 2 1 MANN ROAD 6 2 2 1 1 MARTIN ROAD 6 2 2 1 1 MASON ROAD 6 2 2 1 1 PERCIVAL ROAD 6 2 2 1 1 PORTER ROAD 6 2 2 1 1 ST MARY ROAD 6 2 2 1 1 INDEPENDENCE STATION 6 2 1 2 1 NARROWS ROAD 7 2 1 3 1 MAHER ROAD 6 2 1 2 1 WOLF ROAD 6 2 1 2 1 WILSON ROAD 6 2 1 2 1 INDEPENDENCE ROAD 6 2 1 2 1 CRUISE CREEK ROAD 5 2 1 1 1 GARDNERSVILLE ROAD 5 2 1 1 1 RECTOR ROAD 5 2 1 1 1 DIXON ROAD 4 2 1 1 ANDERSON ROAD 8 1 2 3 2 DUDLEY ROAD 8 1 2 3 2 HIGHLAND PIKE 8 1 2 3 2 BROMLEY CRES. SPR. RD 7 1 2 3 1 BUTTERMILK PIKE 8 1 2 3 2 ROGERS ROAD 7 1 2 3 1 HIGHWATER ROAD 7 1 2 3 1 BUFFINGTON ROAD 6 1 2 3 CONLEY ROAD 5 1 2 1 1 ERLANGER CRES. SPR. RD. 6 1 1 3 1 GRAND ROAD 6 1 1 3 1 CODY ROAD 5 1 1 2 1 MILLS ROAD 5 1 1 2 1 WAYMAN BRANCH ROAD 5 1 1 2 1 BULLOCK PEN ROAD 6 1 1 3 1 OLD KY 17 6 1 1 3 1 BRAMLAGE ROAD 5 1 1 2 1 STEEP CREEK ROAD 4 1 1 1 1

6-26

Table 6-18. Priority Ranking for Capacity Expansion Points Future ADT Future LOS Existing ADT DUDLEY ROAD 6 35,594 F 29,631 ANDERSON ROAD 6 15,631 F 14,210 AMSTERDAM ROAD 6 14,491 F 13,174 INDEPENDENCE STATION 6 13,138 F 10,769 ERLANGER CRES. SPR. RD. 6 10,987 F 9,988 GRAND ROAD 6 10,359 F 9,417 GARVEY ROAD 6 10,289 F 9,354 OLD TAYLOR MILL ROAD 6 9,822 E 8,185 BUTTERMILK PIKE 5 8,014 E 7,285 ROGERS ROAD 5 8,014 E 7,285 WESTERN RESERVE 5 8,014 E 7,285 NARROWS ROAD 4 7,791 D 7,083 CODY ROAD 4 7,303 D 5,986 BROMLEY CRES. SPR. RD 4 7,054 D 6,413 HIGHLAND PIKE 4 5,479 D 4,981 MILLS ROAD 3 3,958 C 3,244 BUFFINGTON ROAD 3 3,810 C 3,464 WOLF ROAD 3 3,063 C 2,511 HIGHWATER ROAD 3 3,009 C 2,735 MAHER ROAD 3 2,552 C 2,092 WAYMAN BRANCH ROAD 3 2,339 C 1,917 ERLANGER ROAD 2 1,235 B 1,123 PELLY ROAD 2 1,125 B 922 BULLOCK PEN ROAD 2 1,088 B 989 OLD KY 17 2 1,088 B 989 INDEPENDENCE ROAD 2 1,042 B 854 STAFFORDSBURG ROAD 2 745 B 677 MARSHALL ROAD 1 617 A 506 OLIVER ROAD 1 608 A 498 WILSON ROAD 1 543 A 445 STEPHENS ROAD 1 515 A 422 GARDNERSVILLE ROAD 1 510 A 464 HOGREFFE ROAD 1 506 A 415 KENTON STATION 1 432 A 393 BRAMLAGE ROAD 1 414 A 339 PERCIVAL ROAD 1 382 A 347 RECTOR ROAD 1 366 A 333 PORTER ROAD 1 330 A 300 MASON ROAD 1 316 A 287 FEISER ROAD 1 292 A 265 STEEP CREEK ROAD 1 278 A 228 GRAVEN ROAD 1 264 A 216 SUGARCAMP ROAD 1 259 A 235 ALEXANDER ROAD 1 254 A 231 DIXON ROAD 1 243 A 221 MARTIN ROAD 1 204 A 185 CONLEY ROAD 1 175 A 159 CRUISE CREEK ROAD 1 153 A 139 LOCUST PIKE 1 143 A 130 WRIGHT ROAD 1 126 A 103 MANN ROAD 1 114 A 104 ST MARY ROAD 1 112 A 102 REIDLIN ROAD 1 86 A 78 LAMBS FERRY ROAD 1 68 A 62

6-27

CHAPTER 7

BICYCLE AND PEDESTRIAN TRAVEL

Improvements in bike and pedestrian travel are important for advancing toward a viable multi-modal transportation system. This plan’s recommendations for bike and pedestrian modes are consistent with recommendations in the Kenton County Bicycle Plan (1998) and the Kenton County Pedestrian Plan (2001). ROLE OF NON-MOTORIZED TRAVEL As in other urban areas across the country, there is a need to increase bicycle and pedestrian travel in Kenton County. Bicycling and walking are essential to a multi-modal transportation system as alternatives to driving, especially for short trips, and as connectors that support and facilitate transit use. Non-motorized travel helps to reduce congestion and vehicle emissions, in addition to its benefits to the users. Kenton County’s potential for expanding non-motorized travel is indicated by the estimate that 25% of all trips, regardless of mode, are less than one mile in length (Kenton County Pedestrian Plan, page 1-3). These short trips would more frequently involve bicycling and walking if there were more facilities that provided for safe travel by these modes. Bike and pedestrian facilities are especially effective when they provide for travel connectivity in residential and commercial areas. Bike and pedestrian facilities are divided into the following three categories. • On-road bicycle facilities (needed on bridges and viaducts as well as on

roadways): Bike lanes - a part of the roadway designated for exclusive bicycle use through striping or signage, most appropriate in urban areas, minimum width of four feet, preferably located on both sides of a roadway Paved shoulders - most appropriate in rural areas, provide from four to six feet for bike use Shared lanes Wide outside lanes

• Separate off-road facilities:

Bike paths - separated from the roadway, width from ten to thirteen feet plus two-foot shoulders on either side, typically paved but may use other materials

7- 1

Multi-purpose trails - especially useful as connectors to schools, shopping areas, bus stops, etc.

• Sidewalks: to provide for safe pedestrian travel, especially in residential

neighborhoods and along transit routes Implementation of bicycle and pedestrian improvements depends on funding from federal, state, and local sources. At the federal level, bicycle and pedestrian facilities are eligible for funding from most transportation programs, but the Transportation Enhancement Program is especially important. This is the only designated funding source for projects that support non-motorized travel, as well as for other types of enhancement projects. At the state level, KYTC normally includes the cost of bike paths and sidewalks within the cost of capacity expansion projects on State Roadways in urban areas. At the local level, government funding and citizen initiative play a major role in expanding bike and pedestrian facilities. RECOMMENDATIONS: BIKE AND PEDESTRIAN FACILITIES This plan’s recommendations for improving bike and pedestrian facilities are consistent with recommendations in the Kenton County Bicycle Plan (1998) and the Kenton County Pedestrian Plan (2001). Both of these documents were developed by the Northern Kentucky Area Planning Commission and are incorporated into Kenton County’s Comprehensive Plan (2001). The Kenton County Bicycle Plan proposes routes for six categories of bikeway. Among these categories, the Primary, Secondary, and Local Bikeways are most important as elements of the transportation system. These three categories have a total of 159 miles of recommended bikeway, of which 99 miles are on State Roads (62% of recommended mileage). The other three categories of bikeways are primarily for recreational use. The categories are summarized below. Routes recommended for Primary Bikeways are presented in Figure 7-1. • Primary Bikeways, which are the major pieces in the proposed bicycle network,

form an inter-connecting system of major north-south and east-west routes. The proposed routes are located mostly north of KY-536, including KY-8, Dixie Highway east of Turkeyfoot Road, Turkeyfoot Road, KY-17, KY-16, DeCoursey Pike, and KY-536. The Kenton County Bicycle Plan recommends 106 miles of Primary Bikeways, of which 69 miles (65%) are on State Roads.

• Secondary Bikeways, which provide alternative routes to the Primary Bikeways,

tend to be best suited for advanced cyclists (these routes tend to have more traffic, narrower width, or steeper terrain than the Primary Bikeway routes). The Kenton County Bicycle Plan recommends 41 miles of Secondary Bikeway, of which 29 miles (71%) are on State Roads.

7- 2

Figure 7-1. Recommended Bikeways

7- 3

• Local Bikeways provide links to the Primary and Secondary Bikeways; these are generally located on lightly traveled roads. The Kenton County Bicycle Plan recommends 12 miles of Secondary Bikeway, of which only one mile is located on State Roads.

• The bikeway categories that are primarily for recreational use are as follows:

Touring Bikeways, which are mostly on lightly used roads in the rural area south of KY-536 (recommended for 45 miles, of which 39 miles, or 89%, are on State Roads);

Bike Paths, which are paved or unpaved bike paths that are not anticipated to become part of the roadway system (recommended for four miles); and

Mountain Bike Areas, which are in off-road areas suitable for trail development. The implementation of these recommended routes depends primarily on the KYTC and local governments. The state includes bike lanes (marked by striped pavement), as well as sidewalks, as part of the capacity expansion on “urban segments” of State Roads with a speed limit of 45 miles per hour. On urban segments where the speed limit is 55 miles per hour, bikes can be used on the paved shoulder. In Kenton County, the effect of state policy will result in the addition of marked bike lanes and separate sidewalks to the following: • all of Turkeyfoot Road, • all of KY-16 south of I-275, • KY-536 west of KY-16, and • KY-17 south of KY-536. Bikes may be used on the shoulders of KY-17 north of KY-536 and KY-536 east of KY-16. The bike lanes and sidewalks that will be constructed over the next thirty years on state roadway represent the beginning of bicycle and sidewalk networks that can be gradually expanded. For bicycling, in addition to construction projects, other means of encouragement include improvements to signage and the creation of shared lanes. The Kenton County Pedestrian Plan supports the expansion of pedestrian facilities by providing a guide for designing pedestrian ways. The plan provides design standards that it recommends for incorporation into subdivision regulations and zoning ordinances. The plan also presents a process for assessing pedestrian access to selected destinations (involves identifying walkable areas and potential pedestrian connections) and recommends the process for new development plan applications and for local jurisdictions evaluating sidewalk improvement projects.

7- 4

CHAPTER 8

OPERATIONAL IMPROVEMENTS Operational improvements enable the existing transportation system to move traffic more quickly and more safely. Approaches for improving operations range from the traditional – including signal coordination, intersection widening, and access management – to the use of intelligent transportation system (ITS) technologies. This plan’s recommendations for operational improvements are focused on the most congested segments of the county’s major roadways and on increased application of ITS technologies on freeways and major arterials. Operational improvements enhance the transportation system’s performance and optimize the enormous investment represented by the existing system. Their implementation contributes to the preservation and maintenance of existing infrastructure, which is a high priority at all levels of government. Compared to expansion projects, operational improvements are generally faster and less expensive to implement. This plan recommends operational improvements such as improved signalization, the addition of turn lanes, and other traditional approaches, and it also recommends the greater use of intelligent transportation system (ITS) technologies. Both the traditional and ITS approaches for improving system operation help to reduce congestion, improve safety, lower pollutant emissions, improve system efficiency and performance, and reduce the need for expansion projects. TRADITIONAL APPROACH FOR IMPROVING SYSTEM OPERATION The traditional approach for improving system operation is focused on facilitating traffic turns, merging, and other traffic movements. This approach involves traffic signal coordination, the addition of turn lanes at intersections, removal of parking, synchronization of traffic signals with an areawide signal system, and access management. Traditional operational improvements are especially effective on arterials, such as Dixie Highway. Arterials, as a critical component of the roadway system, account for about 35% of vehicle miles traveled at the regional level. As an area becomes more developed, the arterials become more congested, less efficient, and more hazardous. The addition of curb cuts (driveways) and cross streets results in more traffic signals. Every signalized intersection reduces arterial capacity – the reduction may be 50% or more

8-1

where signals are frequent and poorly spaced. Intersections and access points increase the potential for accidents – more than half of all accidents typically occur at intersections or are access-related. For corridors where curb cuts, cross streets, and traffic signals are already in place, such as Dixie Highway, traditional operational improvements can mitigate traffic problems. For highways where development is pending or just beginning, such as recently completed KY-17, roadway capacity can be preserved and mobility problems mitigated by a preventative approach that applies access management. Access management controls the design and operation of driveway and street connections onto a highway. For major roadways in developing areas, access management is fundamental for minimizing curb cuts and signalization in order to preserve travel capacity and functional integrity. For major roadways in developed areas, access management is sometimes suitable for addressing new access points or for retrofitting existing roadways. The responsibility for improving operations belongs to local governments for local roads and to the KYTC for state roads. As part of this plan, five of Kenton County’s most congested roadway segments are recommended for studies to determine the optimal combination of operational improvements. These studies will enable the recommended projects to be eligible for federal funding. The areas to be studied (described in Chapter 5) are: • Dixie Highway (U.S. 25) from Florence in Boone County to I-75 in Covington, • KY-17 and intersections from Kyles Lane to Dudley Pike and west to

Horsebranch and Orphanage Roads, including the I-275 ramps, • Turkeyfoot Road (KY-1303) between Dixie Highway (U.S. 25) and Dudley Pike

(county road), • Madison Avenue/Scott Street and Greenup Streets (KY-17) between 3rd and 26th

Streets, and • Madison/James/Decoursey (KY-16/KY-177) between 26th Street and Grand

Avenue. In addition to the areas recommended for study, this plan also recommends two projects for implementation of operational improvements (see Chapter 5). • On 4th and 5th Streets in Covington (including some inter-connecting streets, the I-

75 approach lane, and the Clay Wade Bailey Bridge southbound exit ramp), a variety of improvements to traffic operations are recommended consistent with recommendations in the Central Area Loop Study.

• On Madison Avenue between Latonia Avenue and 26th Street, recommendations are for the removal of parking to create an additional lane (includes the need to add signs and pavement markings and build off-site parking).

8-2

INTELLIGENT TRANSPORTATION SYSTEM (ITS) TECHNOLOGIES Metropolitan areas throughout the country are using or deploying intelligent transportation systems to manage traffic. These systems merge computer, telecommunication, and electronic technologies into an integrated operation. The ITS components support each other to reduce congestion and delay, increase travel speed and traffic throughput, reduce the frequency and severity of accidents, and optimize transportation system efficiency. ITS technologies were initially focused on the freeway system, but they are also being applied to arterials, transit systems, and other transportation elements. They are being used increasingly to facilitate inter-agency communication and coordination so that agencies in different jurisdictions can work together in responding to incidents and managing traffic. ITS applications will continue to expand as new technologies are developed. Federal policy promotes the application of ITS technologies for their effectiveness and -- given the realization that expansion projects cannot keep pace with congestion -- for their potential. Whereas ITS applications focus on transportation operations within metropolitan areas, federal requirements seek to insure that these systems are developed so they can be integrated nationally. As a basis for funding eligibility, metropolitan areas are required to develop ITS plans that include a “Regional Architecture” in conformity with the “National Architecture.” For this metropolitan area, OKI developed an ITS plan in 2001. For Kenton County, ITS technologies are currently used to monitor freeways for congestion and accidents; reduce the time needed to detect, respond to, and clear incidents; provide real-time traffic information to help motorists avoid congestion; and improve bus performance and security for transit users. The benefits of ITS for improving Kenton County transportation are expected to grow in the future as ITS continues to evolve. The Regional ITS: ARTIMIS In the Cincinnati-Northern Kentucky area, the regional ITS is called “ARTIMIS” (Advanced Regional Traffic Interactive Management and Information System). ARTIMIS covers 88 miles of the region’s most heavily traveled freeways. In Kenton County, ARTIMIS covers I-275 and the northern part of I-75/I-71, as indicated in Figure 8-1. The major goals of ARTIMIS are to improve motorist safety, travel time, and air quality. ARTIMIS works to achieve these goals by reducing congestion on freeways, which is mostly due to incidents. Extensive studies show that more than 50% of

8-3

congestion in metropolitan areas is due to incidents such as accidents, disabled vehicles, spilled loads, special events, and adverse weather conditions. A primary function of ARTIMIS is to manage incidents. Electronic devices detect and transmit data on traffic conditions to the ARTIMIS centralized control center, which then makes information available to motorists (directly and through the media) and to emergency response agencies and transit operators. Major components of the ARTIMIS system include the following. • Vehicle Detection Technologies - More than 1100 detectors are embedded in the

freeway pavement to identify traffic conditions (vehicle count, occupancy, and speed). Data that indicates slow or stopped traffic represents the potential occurrence of an incident. Radar detectors are installed along I-71 in Hamilton County.

• Closed-Circuit Television Cameras - ARTIMIS has more than 80 cameras.

Sixty of these are full-motion color video cameras that provide clear images of traffic conditions. These cameras are connected to fiber-optic cable. Slow-scan color cameras, which produce a moving video image, are used where telephone lines are the communication medium. Fixed black and white cameras are used for tunnels and poorly lit environments where high resolution is needed.

• Communications Infrastructure - Dedicated fiber-optic cable (see Figure 8-1)

is the preferred communications medium because it can transmit multiple video images, in addition to advantages related to stability (relatively immune to cross-talk), operating costs, and immunity to lightening damage. Where fiber-optic cable has not been installed, telephone (leased service) or microwave (wireless transmission for one camera) are used.

• Dynamic Message Signs - Forty over-head mounted signs are located near major

interchanges to advise motorists of traffic problems and potential alternate routes. • Highway Advisory Radio - The HAR makes traffic advisories and construction

information available 24 hours a day via broadcasts on a dedicated channel (530 AM).

• 511 Traveler Advisory Telephone Service - This system provides up-to-the-

minute, route-specific traffic and construction information 24 hours a day. It is accessible from both landline and wireless phones via one three-digit number (511). ARTIMIS receives more than 75,000 calls per month.

• Reference and Ramp Markers - Blue and white signs are posted along the

median every 0.1 mile and at entrance and exit ramps with information on the direction of travel, interstate route number, and location (based on the freeway milepost system). The markers have helped expedite incident response by

8-4

enabling motorists to report and emergency responders to locate incident sites accurately.

• Freeway Service Patrol Vans - Five vans assist motorists with temporary

repairs, provide fuel, call for assistance, remove road debris, and provide other services that speed up the removal of disabled vehicles and reduce traffic congestion and delay.

The benefits of ARTIMIS were evaluated in a recent study conducted by OKI. In a conservative assessment of ARTIMIS impacts, the study estimated that delay from incidents has been reduced by 19,000 hours per day, which together with improvement in safety, travel time, and environmental quality translates into an ARTIMIS benefit/cost ratio of 12 to 1. In a survey of emergency responders, it is estimated that ARTIMIS has reduced response time by about 30% (related to the speed and accuracy with which information is provided to dispatchers and emergency responders). These benefits clarify the value of applying advanced technologies to the transportation system. ITS Applications to Transit ITS technologies deployed by the Transit Authority of Northern Kentucky (TANK) for fleet management (December, 2002) are intended to improve transit operations and efficiency and attract new riders. TANK has deployed Computer Aided Dispatch (CAD), Automatic Vehicle Location (AVL), and Mobile Data Terminal (MDT) systems for its entire fleet of fixed route, demand response, and support vehicles. These systems involve the use of satellites and computers for tracking vehicle real-time locations, which in turn improve schedule adherence and reduce passenger wait time. TANK installed the same systems as Metro (transit operator in the City of Cincinnati and Hamilton County in Ohio) to enable the two operators to share scheduling information and integrate various operations. Transit operations are further improved by additional ITS applications and improvements in TANK and Metro inter-operability. TANK is sharing Metro’s 800 MHZ radio infrastructure and using the same type of electronic equipment as Metro. In addition, both transit agencies have tied in with ARTIMIS. A fiber optic cable connects Metro dispatch to ARTIMIS, and a broadband telephone line connects Metro with TANK. TANK’s ITS system also includes portable radios for support staff, a Digital Voice Recording System, and an interface with the ADEPT paratransit scheduling software to expedite driver communication with the operator. Each of TANK’s buses is equipped with a silent alarm button and passive listening system for expediting response to medical or other emergencies and improving passenger and driver safety.

8-5

The Brio report tool provides data valuable to the operations, scheduling, and planning departments. TANK’s new on-board technologies automate many functions previously carried out via voice over radio. They provide direct voice communication between dispatchers and operators, recorded data useful for management and operation, and automatic transmission of real-time location and vehicle status into text and map formats for view by a dispatcher. AVL, which uses Differential Global Positioning System technology, can locate a vehicle with an accuracy of ten meters and enable operations to adhere more closely to schedule. State ITS Initiatives The KYTC has been aggressive in applying ITS technologies across the state. In Kenton County, the KYTC has taken the initiative to install and operate a roadway weather information system (RWIS), automated vehicle location (AVL) on snowplows, and traffic signal systems. An RWIS provides on-line weather information relative to surface conditions on the interstate system to assist with the application and timing of de-icing chemicals. Kenton County currently has an RWIS station at the interchange of I-275 and KY-17, and another one is planned for I-275 near the Indiana state line in Boone County. KYTC has deployed ten AVL-equipped snowplows in Northern Kentucky to test the potential benefits of equipping all snowplows in the state with AVL. This capability enables the state to track the location of snowplows and their efficient distribution and utilization in the area. RECOMMENDATIONS: ITS STRATEGIC PLAN Federal legislation (Section 5206-e of TEA-21) requires that ITS projects conform to the National ITS Architecture and Standards. This requirement, which is intended to insure the “inter-operability” of ITS projects and systems nationwide, basically means that each metropolitan area develop an ITS Plan and Architecture as a prerequisite for federal funding eligibility for future ITS projects. The “architecture” describes how systems will be interconnected in the region, including system interface and data flows. OKI completed a Regional Intelligent Transportation System Plan, inclusive of a regional architecture, that was adopted by the OKI policy board in April 2002. The recommendations are estimated to cost $45.4 million for Northern Kentucky, of which Kenton County’s share is an estimated $17.1 million. When added to its share of the cost of ARTIMIS operation and maintenance, Kenton County’s total cost for ARTIMIS through 2030 is an estimated $31.3 million. The State of Kentucky has taken responsibility for financing ITS throughout the state, which is assumed to include the cost associated with ARTIMIS.

8-6

The OKI regional ITS plan’s recommendations are presented in three tracks, with overlapping implementation, as summarized below: • Track 1: Optimize the existing ITS, • Track 2: Integrate systems and agencies, and • Track 3: Expand ITS coverage and services. Optimize the Existing ITS Recommendations, which are to be implemented in the next six years, will enhance the ITS infrastructure that is already in place. Major recommendations that affect Kenton County are the following. • Add fiber optic cable to I-275 to upgrade communications (which involves the

addition of more field devices). • Improve signal operations, responsive and adaptive signal control, and other non-

ITS approaches along Dixie Highway. • Increase the number of freeway service patrol vans from two to four in Northern

Kentucky. • Purchase four vehicles for the purpose of removing disabled vehicles from

interstates in Northern Kentucky. Additional recommendations include improving public education of ARTIMIS, supporting the regional forum for incident management, and implementing additional travel information dissemination methods (may include cable TV station, personalized traveler information on a subscription basis delivered to cell phones, pagers, and personal computing devices). Integrate Systems and Agencies These recommendations, which are to be implemented in the next six years, apply to the technical and institutional integration of ITS applications. They will expand ARTIMIS usage and capabilities. Agencies will be integrated into ARTIMIS at one of three levels of membership. These levels are differentiated by the levels at which an agency chooses to receive data, provide data, and control field devices. As an example of the fullest level of integration, a 911 emergency dispatch agency could view an incident through ARTIMIS or an ARTIMIS member agency’s video cameras (obtain real-time data direct from the source) in order to determine the type of emergency response needed and then control the camera to monitor emergency response and determine additional needs. The plan recommendations support ITS integration, which in turn provide for the following capabilities. • Emergency dispatch, emergency response, transit, and other agencies will be

electronically integrated with ARTIMIS. In Kenton County, candidates include

8-7

the Kenton County, Covington, and Erlanger-Elsmere computer-aided-dispatch systems.

• Member agencies will be able to control video cameras, Dynamic Message Signs, and Highway Advisory Radio.

• Member agencies will be able to share data and video images, including real-time information on incidents, travel time on arterials and freeways, and other data.

• Centralized traffic signal systems will be connected to ARTIMIS, and incident detection capabilities will be expanded to arterials.

Expand ITS Coverage and Services These recommendations focus on expanding the geographic coverage of existing systems along the freeways and key arterials and adding new ITS functions and services. In Kenton County, this includes the addition of ARTIMIS field devices and communications along I-275, which overlaps with recommendations in Track 1 for optimizing the existing ITS. In addition, service improvements, which are recommended for implementation in the next ten years, include the following: • install advanced highway-rail safety systems at key crossings, • implement transit signal priority on traffic signals based on study results of key

corridors, • implement specialized truck-oriented traveler information via ARTIMIS and at

weigh stations approaching the region (provide information flow to freight automated dispatch),

• install snow and ice detection (Road Weather Information System) on key bridges, and

• test an electronic crash mitigation/speed control system on northbound I-71/I-75 downhill in Covington as a demonstration project.

8-8

CHAPTER 9

FINANCIAL ISSUES This financial analysis is intended to provide policy officials with a realistic understanding of the difficulties of funding the transportation improvements needed in Kenton County. It identifies the improvements that can reasonably be expected to be funded if transportation revenues continue at their present level through the planning period (to 2030) and presents funding issues for county road improvements. FINANCIAL OUTLOOK This financial analysis involves a comparison of the county’s estimated transportation costs and revenues. The analysis is conducted in two parts to account for different funding sources. One analysis is for facilities that receive federal and state funding, which is focused on State Roads (i.e., state and federal roads), ITS, and transit. The other analysis is for the Primary County Road system, for which Kenton County has major financial responsibility. The results of the analyses, as presented in Table 9-1, indicate that the revenues expected during the planning period (to 2030) can cover the costs of the following: • operation and maintenance (O&M) for State Roads, ARTIMIS, and bus transit; • this plan’s recommendations for improving ARTIMIS and bus transit and for a

study of Bus Rapid Transit, and • this plan’s recommendations for “Priority Projects” for State Roads. This approach gives priority first to funding the existing system’s operation and maintenance, which responds to federal and regional policy for preserving and maintaining the existing transportation infrastructure, and then to funding the recommended improvements. The expected revenues do not cover the cost of all of Kenton County’s transportation needs. The shortfall affects the implementation of the following: • “Needed Projects” for State Roads; • light rail and streetcar systems; and • improvements for Primary County Roads. The shortfall is significant as an indicator of transportation needs in comparison to revenues, but its size may be reduced. • Local and state officials are taking the initiative to seek a Congressional

appropriation to cover the cost of the Brent Spence Bridge replacement ($465

9-1

million). Their efforts are warranted by the magnitude of the bridge’s cost and its importance to national commerce and infrastructure. (If the bridge is funded through this approach, more of the “expected revenues” would be available to cover the cost of “Needed Projects” that are currently included in the shortfall.)

• The cost of the light rail and/or streetcar systems ($566 million inclusive of operation and maintenance) will be deducted from the shortfall when a decision is made that will either commit the systems to funding or forego them as recommendations.

• The cost of improvements to Primary County Roads ($25 million) is an issue that the county will be considering.

Regardless of the outcome of efforts to reduce the shortfall, it is likely that some of the “Needed Projects” for State Roads will not be funded until after 2030.

Table 9-1. Financial Summary of Plan Recommendations Estimated Estimated Shortfall Total Cost Revenues (to 2030)

State Roads-Capital $1,358,660,000 $681,560,000 $677,100,000 State Roads-O&M $299,700,000 $299,700,000 ARTIMIS $31,300,000 $31,300,000 Bus $240,800,000 $240,800,000 BRT Study $450,000 $450,000 Light Rail $502,600,000 - $502,600,000 Streetcar $63,500,000 - $63,500,000 Primary County Roads $25,000,000 - $25,000,000 Total $2,522,010,000 $1,253,810,000 $1,268,200,000

In addition to the persistence of some level of financial shortfall, there is also the issue of the need to restrain the growth of the shortfall, i.e., reduce the need for additional transportation improvements. Given that there is not enough money to fund all of the transportation improvements needed during the planning period, the county needs policy that will tighten the linkage between transportation and land use. This plan initiates that policy linkage by giving funding priority to transportation improvements in areas where development is established, underway, or imminent and consistent with the county’s Land Use Plan. In addition, public resources and growth should be directed to areas that are already developed or ear-marked for development, consistent with the county Land Use Plan, and should avoid creating new needs for expanding roadway capacity. FUNDING SOURCES AND REVENUES The revenues for funding Kenton County’s State Roads, ARTIMIS, and transit are estimated to average $26.8 million per year through the planning period (a total of nearly $750 million). These revenues are for funding transportation improvements

9-2

and for operation and maintenance. About two thirds of the funds are for meeting highway needs ($18.5 million per year), and the other third for transit expenses ($8.3 million per year). As shown in Table 9-2, these funds come from federal, state, and local sources through a variety of programs.

Table 9-2. Estimated Transportation Revenues Federal Sources for Highway Annual To 2030 Interstate Maintenance Program (IM) $1,553,000 $43,484,000 National Highway System (NHS) $1,690,000 $47,320,000 Surface Transportation Program (STP) STP (areas over 200,000 pop.) $2,406,000 $67,368,000 Safety Funds $350,000 $9,800,000 Enhancement Funds $350,000 $9,800,000 STP Discretionary Funds $2,624,000 $73,472,000 Congestion Mitig. & Air Quality Improv. (CMAQ) $1,153,000 $32,284,000 Bridge Replacement and Rehabilitation $954,000 $26,712,000 Subtotal $11,080,000 $310,240,000 State Sources for Highway Construction Projects $3,148,000 $88,144,000 Maintenance Projects $2,443,000 $68,404,000 Primary Pavement Rehab. $502,000 $14,056,000 Resurfacing Program $640,000 $17,920,000 Rural Secondary $639,000 $17,892,000 Subtotal $7,372,000 $206,416,000 Federal and Local Sources for Transit FTA Capital & Operating $1,646,000 $46,088,000 Local Transit Fund $5,229,000 $146,412,000 Fare Box Revenues $1,425,000 $39,900,000 Subtotal $8,300,000 $232,400,000 Total $26,752,000 $749,056,000 NOTE: Many of the highway-related programs have varying degrees of flexibility for funding transit.

The federal funding sources for transportation, as described in Table 9-3, are established under the Transportation Efficiency Act for the 21st Century (TEA-21). Each program’s funds are apportioned to the states on a formula basis. At the state level, Kentucky uses gasoline tax receipts, as well as other revenues, to finance five programs for the construction, reconstruction, and maintenance of state roads and bridges. For transit, fare box revenues and local funding sources help finance capital, maintenance, and operating expenses.

9-3

Table 9-3. Description of Federal Transportation Funding Sources • Interstate Maintenance (IM) - requires 10% state match For interstate system rehabilitation, restoration, & resurfacing; for reconstruction if capacity is not added; for addition of high-occupancy vehicle & auxiliary lanes • National Highway System (NHS) - requires 20% state match For the NHS (160,000 miles of the nation's major roads), which includes inter- states, a large percentage of urban and rural principal arterials, the defense strategic highway network, and strategic highway connectors • Surface Transportation Program (STP) - requires 20% state or local match For roads that are not functionally classified as local or rural minor collectors, transit capital projects, and other modes as noted below. State STP funds are distributed among 5 programs as indicated. • Areas with over 200,000 population (25%) - provides OKI share; used for roads and transit as indicated above & also for commuter rail, bus facilities, carpool projects, traffic monitoring, & bike & pedestrian projects • Remaining Areas in the State (25%) • STP Discretionary Funds (30%) - discretionary use in any area of the state • Enhancements (10%) - includes pedestrian and bicycle improvements • Safety Construction Activities (10%) - includes hazard elimination and rail-highway crossings • Bridge Replacement and Rehabilitation - requires 20% state or local match For replacing bridges that are unsafe • Congestion Mitigation and Air Quality Improvement Program (CMAQ) - 20% state/local match For projects that contribute to meeting air quality standards (eligibility requires documentation of emissions reduction) • Federal Transit Administration (FTA) Funding - requires 20% state or local match for capital projects and 50% state or local match for operating assistance • Section 5307 - for urbanized areas based on statuatory formula; for highway or for transit maintenance involving capital projects (such as bus replacement) or for operating assistance • Section 5309 (20% state/local) - for rail transit "new starts," rail modernization, and bus-related facilities

9-4

This plan’s estimated revenues provide a reasonable basis for identifying transportation financing issues, but the estimates need to be revised during the plan update process to account for funding changes. Estimates are based on the continuation of current funding programs and funding levels (as of 2002) through 2030, but funding provisions will change when TEA-21 is re-authorized in 2003. The estimates use current funding allocations for Northern Kentucky provided by the Kentucky Transportation Cabinet as a basis for future funding allocations. Revenue estimates include the state/local match. Kenton County’s share of Northern Kentucky transportation funds is based on ratios of road mileage or population. For highways, Kenton County’s share of revenues is based on a ratio of its state road mileage (821 miles) to that of Northern Kentucky (2,184 miles). For transit, Kenton County’s share of revenues is based on its share of Northern Kentucky’s population in the year 2000. FUNDING NEEDS The cost of maintaining and improving Kenton County’s State Roads, ARTIMIS, and transit through the planning period (to 2030) is an estimated $2.497 billion, as shown in Table 9-4. Estimates include the cost of operation and maintenance (O&M) of the existing system as well as the capital and O&M costs for projects recommended in this plan.

Table 9-4. Estimated Costs of State Roads, ARTIMIS, and Transit Capital O & M Total Costs Costs Cost State Roads $1,358,660,000 $299,700,000 $1,658,360,000 ARTIMIS $17,100,000 $14,200,000 $31,300,000 Bus $45,500,000 $195,300,000 $240,800,000 BRT Study $450,000 - $450,000 Light Rail $400,000,000 $102,600,000 $502,600,000 Streetcar $24,000,000 $39,500,000 $63,500,000 Total $1,845,710,000 $651,300,000 $2,497,010,000

The basis for the capital costs is further detailed in Chapters 3 (Transit), 4 (Bus Rapid Transit Initiative), 5 (State and Federal Roads), and 8 (System Operation, which include ARTIMIS). The cost of recommended improvements to bicycle and pedestrian facilities is embedded in costs for State Road projects or are a local responsibility, as discussed in Chapter 7. Additional cost information is presented below.

9-5

• Cost of State Roads Capital Cost ($1,358,660,000) - This cost is the sum of the costs of the “Priority

Projects” and the “Needed Projects” presented in Chapter 5. It includes $1 billion for four interstate improvements, which amounts to 74% of the State Road capital cost. The four projects are the Brent Spence Bridge replacement ($465 million) and the addition of two lanes to three interstate segments: I-75 between the Brent Spence Bridge and Kyles Lane ($100 million), I-75 between Kyles Lane and I-275 ($217.5 million), and I-275 between I-75 and the AA Highway ($217 million for the Kenton County portion).

O&M Cost ($299,700,000 through 2030) - This represents the cost of preserving

and maintaining the interstate and state highway systems in Kenton County. O&M involves resurfacing, rehabilitation, reconstruction, traffic signal system upgrade, and seasonal maintenance (road-salting, grass-cutting, etc.).

• Cost of ARTIMIS Capital Cost ($17,100,000) - This is Kenton County’s estimated share of Northern

Kentucky’s cost for ITS improvements recommended in the OKI Regional Intelligent Transportation System Plan, 2001. Kenton County’s cost share is based on the ratio of its road mileage to Northern Kentucky’s.

O&M Cost ($14,200,000 through 2030) - Kenton County’s share of the O&M

cost for ARTIMIS was estimated based on a cost split of 25% and 75% between Kentucky and Ohio, respectively, and Kenton County’s share of Northern Kentucky’s road mileage.

• Cost of Bus Transit Capital Cost ($45,500,000) – This cost covers the gradual replacement of

TANK’s bus fleet during the planning period (TANK estimates $3 million per year for bus replacement) and the implementation of new park-and-ride lots and transit centers in Northern Kentucky. Kenton County’s share of TANK’s capital cost estimate is based on the county’s share of Northern Kentucky’s population.

O&M Cost ($195,300,000 through 2030) - Kenton County’s share of TANK’s

O&M cost is based on an estimated average annual O&M cost of $15 million for Northern Kentucky and Kenton County’s share of Northern Kentucky’s population.

• Cost of BRT Study The cost of the recommended study for Bus Rapid Transit is estimated to be

$450,000. The study will include the development of cost estimates for implementing a BRT system.

9-6

• Cost of Light Rail Capital Cost ($400,000,000) - Kenton County’s share of the recommended light

rail system’s capital cost includes $97 million for the first phase from Cincinnati to 12th Street in Covington (1.4 miles) and $303 million for the second phase from 12th Street to the Boone County line (8.5 miles).

O&M Cost ($102,600,000 through 2030) – This is based on estimated costs per

mile and assumptions that the first phase will become operational by 2008 and that the second phase will become operational in 2020.

• Cost of Streetcar Capital Cost ($24,000,000) – This is estimated to cover the cost of 1.5 miles of

track from the south end of the bridge over the Ohio River to the center of the Bridge over the Licking River and Kenton County’s share of the cost of vehicles and the operation and maintenance facility.

O&M Cost ($39,500,000 through 2030) - This estimate is based on the system

becoming operational in 2010. COUNTY ROAD SYSTEM For the county roads, this financial analysis provides • an overview of funding sources and revenues for county roads, • the estimated cost of needed improvements for the Primary County Roads, and • funding issues for improving the Primary County Roads. The analysis shows that current revenues and funding sources for county roads cover the cost of basic maintenance and emergency repairs with little revenue left over for improvements. The financial analysis is based on three years of data for fiscal years 2000, 2001, and 2002 (the fiscal year ends on June 30). The data is extracted from the overall budget of the county’s Department of Public Works, which is responsible for recreational facilities (parks and golf courses) in addition to roads. The county’s road budget is integrated with the Department of Public Works’ budget. The estimates are a reasonable indicator of the magnitude of revenues and expenses for county roads. As part of this analysis, the cost of improving Primary County Roads was estimated based on the roadway assessment and priority needs presented in Chapter 6. The cost of improvements to address safety issues, bring conditions up to standards (avoid deterioration that would shorten the life of the infrastructure), and improve key intersections (as a safety issue) amounts to an estimated $25 million. This analysis clearly shows that the cost of needed improvements for Primary County Roads cannot be addressed by the county’s current transportation funding levels and

9-7

sources. As part of this plan, a strategy is proposed for funding needed improvements over the next ten years. Funding Sources and Revenues For county roads, annual average revenues are an estimated $4.7 million, as presented in Table 9-5.

Table 9-5. County Roadway Revenues Funding Source FY 2000 FY 2001 FY 2002 Average

Federal/State Grants - $97,325 $73,028 $56,784 Truck License Fees $178,856 $195,462 $174,755 $183,024 Drivers License Fees $14,126 $13,966 $14,486 $14,193 County Road Aid Fund $345,007 $490,262 $349,652 $394,974 City Transfer $4,598 $124,907 $56,415 $61,973 A - Subtotal $542,587 $921,922 $668,336 $710,948 Maint/Snow Removal $22,374 $40,239 $23,625 $28,746 Road Signs $1,393 $1,618 $6,601 $3,204 Vehicle Repairs $267,706 $262,373 $312,494 $280,858 B-Subtotal* $291,473 $304,230 $342,720 $312,808 A + B Subtotal $834,060 $1,226,152 $1,011,056 $1,023,756 County General Funds $3,713,891 $3,764,738 $3,611,986 $3,696,872 Total Roadway $4,547,951 $4,990,890 $4,623,042 $4,720,628 * The department of Public Works has contractual relationships with other county agencies or departments for repair and maintenance activities. SOURCE: Kenton County Fiscal Court, Office of the Treasury

Over the past three years, county transportation revenues have been generated as follows: • 15% from traditional roadway sources, such as vehicle license fees, Roadway Aid

Funds, and grants (Subtotal A), • 7% from non-traditional funding sources (the Department of Public Works has

contractual relationships with other county agencies or departments for vehicle fleet repair and maintenance/repair activities; Subtotal B), and

• 78% from the County General Fund.

Most of the roadway revenues are used for fixed expenses or maintenance, as indicated in Table 9-6. The expenses are an estimated $4.2 million per year, which leaves very little for discretionary spending for the roadway system.

9-8

Table 9-6. County Roadway Expenses Expenses FY 2000 FY 2001 FY 2002 Average

Adm.Ofc.of Road Supervisor $137,266 $147,338 $159,307 $147,970 Major Road Projects* $487,451 $810,537 $757,951 $685,313 Road Maintenance Salaries $821,236 $792,158 $833,295 $815,563 Signs/Pavt Striping $41,149 $36,052 $55,852 $44,351 Asphalt/Stone/Gravel $628,617 $586,029 $626,235 $613,627 Fuel/Parts/Supplies $403,121 $633,291 $563,104 $533,172 Subtotal $1,894,123 $2,047,530 $2,078,486 $2,006,713 Supplies/Tools/Equip/Salaries $701,015 $758,193 $934,881 $798,030 Gen Admin/Ins/Retirement $532,408 $547,696 $607,802 $562,635 Roadway Total $3,752,263 $4,311,294 $4,538,427 $4,200,661

* Capital Improvement Projects are programmed as part of a budget process and include emergency repairs and/or reconstruction. SOURCE: Kenton County Fiscal Court, Office of the Treasury

As indicated above, on average, about 84% ($3,515,348) of the budget is absorbed by fixed accounts (administration, salaries, and supplies) or directed toward the critical work of maintaining the existing system. The remaining 16% ($685,313) in the “Major Road Projects” category represents discretionary spending, but expenditures are for necessary improvements or projects related to emergency needs (e.g. repair form slides) rather than programmed projects related to long-range capital improvements.

Cost of Improvements In addition to the county road expenditures presented in the preceding section, there are costs associated with the needed improvements to Primary County Roads that are prioritized in Chapter 6. The costs to meet satisfactory safety needs, meet adequate engineering standards, and improve intersection safety is estimated at $25 million.

9-9

Table 9-7. Cost of Primary County Road Improvements Needed Improvement Cost Pavement Re-striping $22,000 Pavement Widening $7,500,000 Pavement Resurfacing $8,500,000 Intersection Improvements $2,200,000 New Signs $186,000 Right-of-way Acquisition $5,600,000 Design/Contingency $970,000 Total Cost $24,978,000

The preceding cost estimates account for the following priority needs: • Safety Measures - Provide pavement markings/re-striping on roads with markings in poor, very

poor, or fair condition - Provide signs that are missing or in poor or fair condition - Replace guardrail in fair condition (cost is included in Pavement Widening)

• Upgrade to Standard - Resurface or repair roads with pavement in very poor, poor, or fair condition

- Widen pavement on roads less than twenty feet • Re-align 14 intersections (field work identified the need for these intersections to

be reconstructed and/or realigned in order to meet highway safety standards) The cost of major widening, which may be needed for Dudley Pike and other roads with a future LOS of F (see Chapter 6), is beyond the scope of this planning study. Detailed preliminary engineering will be needed to determine the costs of these major projects and the methods for financing them. Funding Issues Kenton County’s transportation revenues are not adequate to cover needed improvements to the Primary County Roads. The estimated annual average revenues for county roads of $4.7 million – which is used almost entirely for fixed expenses, maintenance, and emergency needs – cannot cover the estimated $25 million for improving Primary County Roads and additional cost for expanding roadway capacity to accommodate future traffic. Kenton County has been able to keep a reasonable balance between meeting roadway needs for maintenance and capital improvements largely because of the Fiscal Court’s ability to transfer money from the General Fund. This may become increasingly difficult as demands for maintenance and improvements increase. Roadway expenses increased about 21% between 2000 and 2002, and they will continue to grow as traffic volumes and land development increase.

9-10

As part of a funding strategy, the implementation of needed improvements could be staged over a ten year period as follows. • Upgrade pavement markings, signs, and guardrail conditions within the next two

years (estimated cost of $208,000). • Complete the projects related to maintenance of the roadway pavement and

resurfacing within the next four years. • Complete roadway widening and upgrade to adequate engineering standards

within the next ten years. • Complete project improvements related to capacity increases for both roadway

sections and intersections within the next ten years. The additional funds needed to implement the improvements will require Kenton County to take new initiatives. In addition, the county will want to coordinate closely with the state, especially for any intersection improvements that would involve both state and county roads. Additional suggestions for Kenton County initiatives to fund county road improvements include the following. • Consider investigating the potential for other sources of revenue from the state

and federal governments for capacity expansion. (Roads that are functionally classified as Urban Collectors are eligible for federal and state funds, but funding is difficult to obtain since county roads must compete with state roads. Primary County Roads classified as Urban Collectors that potentially need capacity expansion based on a projected LOS F include all or parts of Dudley, Anderson, Erlanger Crescent Spring, Grand, and Garvey Roads. Other Primary County Roads classified as Urban Collectors are all or parts of Old Taylor Mill, Bromley Crescent Spring, Mills, Buffington, Wolf, and Wayman Branch Roads.)

• Consider creating public/private partnerships that take advantage of opportunities to cost-share, as appropriate.

• Consider adopting a countywide policy to conduct traffic impact analysis to determine the needed roadway improvements resulting from new development of any type, with improvements required accordingly. Such a policy would be administered by the NKAPC and would defray the cost of improvements.

• Consider obtaining funding through a bond and/or levy program. • Consider requesting Rural Secondary Program funding for improvements to

county roads located in the rural part of the county. This source does not provide funding continuity, but it may be used to address priority needs, generally not to exceed a cost of $100,000.

9-11