Last updated 12/14/09   

Jackson County Transportation Task Force and the Comprehensive Transportation Plan (CTP) Updates

Resources- Maps and Documents
Proposed Alternatives for 2009 CTP
1994 Thoroughfare Plan NCDOT & Jackson County
Jackson County Goals and Objectives Survey Report
Jackson County Land Development Plan (JCLDP)
Appendix County Maps (JCLDP)
Appendix TWSA Maps (JCLDP)
Jackson County Greenway Master Plan (Update in progress)
Jackson county high accident crash locations and deficient bridges map
Sylva's Street Plan (not adopted)
Planning area map with contour lines (38M-Large)

Public Input
One of the primary functions of the Rural Transportation Planning Organizations is to solicit public comment on the plans and projects of NCDOT. Please forward your questions or comments to ryan at regiona dot org, or call 828.586.1962 x214.

12.1.09 Summary to date

The following information was in the form of a letter sent from Pam Cook, the NCDOT Engineer coordinating the Jackson County Comprehensive Transportation Plan, to some Jackson County Citizens. It serves as a great overview of the transportaion process including Jackson County's role.

The question was asked whether or not a project is guaranteed to be built once it is a part of a CTP. There is no simple answer to this question. There is much more detailed planning and environmental work that occurs over many years and must be done prior to a project being built. The development of a project within a CTP is only the first step. In the next few paragraphs, I will try to give you a little more insight into the life cycle of a project.

There are several different processes going on. 1) Development of a CTP for Jackson County; 2) a project study of R-4745 which is a connector between US 74 and NC 107 in the 2009-2015 North Carolina Transportation Improvement Program (TIP); and 3) a study of existing NC 107 and how to best improve traffic conditions along this facility as traffic wanting to use it increases in the future.

1) The Jackson County CTP focuses on the County’s long range transportation needs and solutions. The CTP evaluates Jackson County’s transportation system on a “system-wide” scale, identifying transportation needs, and recommending solutions. The CTP includes sidewalks, greenways, bicycle lanes, transit routes, and roadways. It is the desire that all modes of transportation will work together. During the process of developing the CTP, local staff in the area was an important part of identifying needs and potential solutions. The Jackson County Transit was part of the process with the director sharing what the future expansions are expected to be based on current and future funding. Throughout this study, I have solicited input from locals through the Task Force, conversations with local officials, and public workshops because I believe strongly that the locals should decide how they want to grow or change. I provided the technical analysis of the existing transportation system and the future transportation system (based on future growth projections for Jackson County from local officials and the Task Force). Then the Task Force offered suggestions for addressing deficiencies to the system. Then the deficiencies were taken to the public where we asked for other suggestions. All suggestions were considered. Town and County officials adopt the CTP along with NCDOT.

For your information, below is the criteria used for coming up with the CTP that the Task Force has recommended to the County Commissioners and the plan that you previewed at the public meeting on October 13 th. Please note that very seldom will every project on a plan meet every goal and objective.

A) NCDOT Mission Statement: “Connecting people and places in North Carolina – safely and efficiently, with accountability and environmental sensitivity.”

B) NCDOT Goals:

• Make our transportation network safer (looked at high number of crashes locations).
• Make our transportation network move people and goods more efficiently.
• Make our infrastructure last longer.

C) Jackson County Goals and Objectives Survey Results:

• Making improvements to intersections.
• Better traffic signal timing.
• Adding turn lanes.
• Creating roundabouts.
• Around 50% of the participants believed limited access and offering other forms of transportation are viable strategies.
• Survey results indicate that the participants want to preserve the rural character and natural beauty of the mountains and towns’ areas. Citizens of Jackson County would like for the town of Sylva to be more bicycle and pedestrian friendly.
• In addition, safety, environmental protection, and increased transportation options are important.

D) Jackson County Land Use Plan:

• Promote a safe and efficient transportation system:
• Local governments will work with NCDOT to identify the location and type of transportation system improvements needed.
• Roads are safe and attractive for visitors and residents, with county officials and residents actively involved in the design of new and upgraded roads to ensure that their design is compatible with the mountain topography and beauty of Jackson County.
• Provide alternate means of transportation (sidewalks, bike paths, etc) for county residents.
• Provide right-of-way protection for future roads.
• Support the continued relationship between Western Carolina University and NCDOT to design and construct transportation system improvements on the campus.
• Work with NCDOT to improve the transportation system between Sylva and Cullowhee.
• Work with NCDOT to implement access management along US 441, US 23/74, NC 107, and NC 116 and incorporate access management into the review of new development along these highways.

E) Recommendations from the Task Force

F) Citizens Input – Examples:

• Old Settlement Road from NC 107 to NC 116 needs improvements.
• There can be no “comprehensive” transportation plan without an associated land use/zoning plan/ordinance.
• For new roads, a route be developed which disturbs as few existing homes and businesses as is reasonable.
• Use existing roadways when possible.
• Alleviate the traffic issues at the T-intersection of NC 107 and US 23.
• Limit traffic access by adding medians to improve safety and improve traffic flow to NC 107.
• There needs to be a westbound on-ramp at exit 85.

Several alternatives were considered for the NC 107 Connector during the CTP process. I have enclosed a map showing the alternatives looked at and a description of the alternatives.We also evaluated the existing roads in the area if no connector were built. These alternatives do not represent specific locations but rather corridor concepts (i.e. closer in to Sylva, further out from Sylva, closer to WCU, with a spur to WCU, with a speed of 40 mph or 55mph or 60 mph). The alternatives were all tested as complete control of access facilities. Again, the line on the CTP map represents a concept. Without a connector in the future, improvements to existing NC 107 and Cope Creek Road may need to be more extensive.

 2) Once a project is on the CTP, a funding source must be identified for each project. For most major projects such as the proposed NC 107 Connector, State and/or Federal funds are allocated to projects in North Carolina’s State Transportation Improvement Program (TIP). The NC 107 Connector is in the current TIP as project No. R-4745. Currently, the NC 107 Connector is on the existing 1994 Transportation Plan (once adopted, this CTP would replace the 1994 plan) though at a more northerly location than is being considered now. In 2000, local officials requested NCDOT to perform a feasibility study for the “ Southern Loop.” This study

(FS-0114C) recommended a multi-lane roadway on new alignment connecting US 23/441 south of Dillsboro to the Great Smoky Mountains Expressway (US 23/74) east of Sylva. The purpose of the new roadway would be to divert through traffic away from the commercial corridor and central business districts; therefore, reducing traffic congestion in these areas. Upon completion of the feasibility study in 2003, the “ Southern Loop” was added to the North Carolina State Transportation Improvement Program (TIP). In 2008, at the request of the NCDOT Board Member, NCDOT removed the western half of the proposed roadway (from US 23/441 south of Dillsboro to NC 107) from the TIP and changed the name from “ Southern Loop” to the NC 107 Connector and has partial funding for right-of-way starting in 2015.

After funding has been established for a project, the Project Development and Environmental Analysis (PDEA) Branch of NCDOT can begin detailed project level planning and environmental studies which takes several years to complete and affords the public many opportunities for input throughout the process. PDEA ultimately documents findings of their studies in an environmental document which is given final approval by NCDOT and the FHWA if federal funds area used for the project. The NC 107 Connector (R-4745) is in this phase and going through what is called the Merger 01 process (process that combines the National Environmental Policy Act (NEPA) and Clean Water Act requirements for projects).

The Merger Process allows agency representatives to work more efficiently by providing a common forum for them to discuss and find ways to comply with key elements of their agency's mission. The primary agencies are the Federal Highway Administration, NCDOT, the US Army Corps of Engineers, and the NC Department of Environment & Natural Resources. Other agencies include The US Environmental Protection Agency, the US Fish & wildlife Services, the NC Wildlife Resources Commission, the NC Department of Cultural Resources, the US Forest Service, and the National Park Service. There may be a few other agencies included on the Merger Team. The merger is the avenue for reaching agreement on Concurrence Points (milestones). It is possible that concurrence not be reached at some point, and the project can not move forward.

Concurrence Points are defining points in the Section 404/NEPA Merger Process. Concurrence is sequential and must be achieved in the proper order. Again, there is public input at several points during this process. The seven concurrence points (CP) in the Merger Process are as follows:

Concurrence Point 1: Purpose and Need and Study Area Defined
The foundation upon which justification of the project is established.

Concurrence Point 2: Detailed Study Alternatives Carried Forward (DSA)
Alternatives which satisfy the purpose and need for the project. These alternatives will be studied and evaluated in sufficient detail to ensure good transportation and permit decision-making.

Concurrence Point 2A: Bridging Decisions and Alignment Review
Identification of bridge locations and approximate lengths and a review of the preliminary alignment for each alternative.

Concurrence Point 3: LEDPA/Preferred Alternative Selection
The alternative selected as the "least environmentally damaging practicable alternative" or LEDPA (NEPA preferred alternative), through the project development and permitting process.

Concurrence Point 4A: Avoidance and Minimization
A detailed, interdisciplinary and interagency review to optimize the design and benefits of the project while reducing environmental impacts to both the human and natural environment.

Note: The LEDPA/Preferred Alternative will be identified and selected based on engineering considerations, costs, impacts on the human and natural environments, agency coordination, and comments received from the public. Selection of the Preferred Alternative will be documented in a Final Supplemental Final Environmental Impact Statement and a Design Public Hearing will be scheduled. The purpose of the Corridor Public Hearing is to provide citizens an opportunity to comment on the selected alternative for the project.

Concurrence Point 4B: 30 Percent Hydraulic Review
3A review of the development of the drainage design.

Concurrence Point 4C: Permit Drawings Review
A review of the completed permit drawings after the hydraulic design is complete and prior to the permit application.

 The NC 107 Connector is currently at Concurrence Point 1 in the merger process. Again, there are many opportunities for public input throughout project planning. Many of these opportunities are identified in the attachment that I have enclosed. More detailed information about the merger process can be found at the following website: http://www.ncdot.gov/doh/preconstruct/pe/MERGER01/default.html.

A public meeting was held on December 4, 2008 which tried to help the public better understand the “project planning” process and to seek help identifying transportation needs in northern Jackson County. During the “project planning” phase of the NC 107 Connector project, alternatives will not be limited to a multi-lane roadway on new location. In addition to new location alternatives, other alternatives will be considered including but not limited to:

• Improving existing roadways (no-build alternative);
• Traffic systems management (TSM) measures i.e. optimizing existing traffic signals timing on NC 107, widening intersections to add turn lanes, combining and eliminating driveway accesses along NC 107, etc.
• Multi-modal options
• Connecting existing local streets to make a new link between NC 107 and US 74.
• Combinations of any of the above.

3) There is also a Feasibility Study underway for existing NC 107 (FS-0814A) to examine traffic congestion along this facility and to investigate ways to improve traffic conditions along existing NC 107 between Sylva and Western Carolina University. Planners and engineers will develop concepts, or alternatives, that will relieve traffic congestion. Each of these alternatives will be compared based on impacts to the human and natural environments, costs, and constructability. The specifics that will come out of a feasibility study are beyond the scope of a comprehensive transportation plan (CTP). The finding of the feasibility study will also assess the ability of existing NC 107 to safely and efficiently handle projected future traffic volumes.

As you can see, there is no one agency/entity that has the final say on a project. It truly is a collaborative decision-making process that all agencies/planning partners are bound to follow .

This information was compiled by Pam Cook, NCDOT Planning Branch Engineer and reviewed by Ryan Sherby, RPO Coordinator.

8.11.09 Summary to date

The Jackson County Transportation Task Force met the August 11th to select the proposed alternatives that would move forward into the draft Comprehensive Transportation Plan. The draft should be available soon. The proposed alternatives and the accompanying information used to analyze the alternatives can be found here.

The Jackson County Transportation Task Force will conduct a public meeting at the Jackson County Administration and Justice Center on Wednesday April 29th at 5:00 PM in the Jackson County Commissioners board meeting room, A 201.  Task Force members will be present to listen to public concerns and ideas for improving Jackson County’s multi-modal transportation system which includes highways, bikeways, sidewalks, greenways, transit, rail, etc.  The drop-in session will run from 5 to 6 PM.  At 6 PM a presentation will summarize the Jackson County transportation planning process.   After the presentation, the public will have the opportunity to comment on the preliminary alternatives being considered by the Task Force.  Individual comments will be limited to three minutes.  A list of the
alternatives and a summary of Task Force activities to date can be found at www.regiona.org/task_force.htm.  Written comments may be submitted to Ryan Sherby at the Southwestern Commission, 125 Bonnie Lane, Sylva NC 28779, by calling 828-586-1962 ext 214, or by emailing ryan@regiona.org.

4.1.09 Summary to date

A little history of past input that is important to remember while developing the comprehensive transportation plan. The alternatives at the end of this are for the road element only. Transit, bicycle, and pedestrian are being worked on by local staff in Jackson County. As part of the CTP process, a Goals and Objective survey was conducted. Below are excerpts from the summary: Goals and Objectives Survey Results For the Jackson County Comprehensive Transportation Plan. The survey was distributed in two formats as determined by the Task Force. It was placed on the website using Survey Monkey. A link to the survey was emailed to all of the Task Force Members and staff at the municipal and county level. The survey was made available for download on the Region A Southwestern Commission RPO website with a link to the online version at Survey Monkey. Paper copies where made available at the following locations: Jackson County Planning Department, Southwestern Commission, Town of Dillsboro, Town of Sylva, and the Jackson County Public Library in Sylva. Press releases were then submitted to the Sylva Herald and Smoky Mountain News regarding the available locations and mechanisms for completing the survey. Citizens who could not take advantage of the methods offered were encouraged to contact the RPO directly for assistance. The initial time for completing the survey was extended from 30 to 60 days to allow time for more responses, and for the Smart Roads Coalition to offer the survey in paper format at the annual Greening up the Mountains Festival in downtown Sylva which attracts up to 5000 people every year. The total number of surveys received was 157. of the 157 surveys collected 98 were completed online, and 59 were submitted as hard copy.

 Survey Results

The largest response rate came from primarily two age groups: 35-44 with 21%, and 45-

64 with 52.9%. The third largest age group to respond was over 65 with 15.3% of the

responses. Jackson County responses accounted for 96%

Conclusions from survey:

Based upon the results of this survey, the citizens of Jackson County, and those who to commute to work here, take an active interest in the transportation system of the planning boundary area. By examining the results of the Goals and Objectives survey, it is evident that the participants want to preserve the rural character and natural beauty of the mountains and towns areas. Citizens of Jackson County would like for the town of Sylva to be more bicycle and pedestrian friendly. In addition, safety, environmental protection, and increased transportation options are important.

When asked to rate the importance of strategies for improving a roads efficiency to move traffic, participants listed the following:

• Over 70% of participants agreed on the following:
• Making improvements to intersections
• Better traffic signal timing
• Adding turn lanes
• Creating roundabouts
• Around 50% of the participants believed limited access and offering other forms of transportation are viable strategies.

When asked what areas they would desire to see improved access:

• Downtown Sylva
• Cullowhee
• WCU

Other concerns:

Land use connections

Roads currently (2008) experiencing deficiencies in the Jackson County area are listed below:

Roads approaching capacity but still functioning well:

• NC 107 from Asheville Highway to Cope Creek Road
• NC 107 from Webster Road to Lovedale Road (beginning of 4 lane divided section)
• Asheville Highway from end 4 lane section to Teakwood Lane ( Mid-Day Peak period)

Roads over capacity:

• NC 107 from Cope Creek Road to Webster Road

• W. Main Street from Mill Street (beginning of 1-way pair) to Chipper Curve Road

Roads expected to experience deficiencies in the Jackson County in 2035 during peak periods (AM, Mid-day, or PM) are listed below:

Roads approaching capacity but still functioning well:

• Asheville Highway from NC 107 to Hospital Road
• W. Main Street/Haywood Road from Mill Street (end of 1-way Pair going towards Dillsboro) to Wilke Crescent Drive)
• Little Savannah Road from NC 107 to Wake Robin Drive
• NC 107 from South of Forest Hills Road where 2 lane section begins to Cullowhee Mountain Road
• NC 107 from Webster Road to end of 5-lane section
• Webster Road from South River Road to Rock Quarry Road
• E Haywood Road from US 23&441 to Front Street

Roads over capacity:

• Centennial Drive from 4 lane section to University Way
• NC 107 from Asheville Highway to Webster Road
• W. Main Street from Chipper Curve Road to Mill Street (beginning of 1-way pair)
• Ramp from Eastbound Great Smoky Expressway to US 23&441
• Ramp from Northbound US 23&441 to Eastbound Great Smoky Expressway

1. Roads outside modeled area that are expected to be at or over capacity by 2035:

• US 64in Cashiers from NC 107 to Lance Road (SR 1117)

2. Other areas of concern mentioned at the January 29, 2009 Jackson County Task Force Meeting:

• Number of high accidents in Downtown Sylva
• Number of accidents (and severity) at Smoky Mountain Elementary School
• Number of high accidents on 23 Business in Dillsboro
• Number of high accidents at Macktown Gap Road at 441
• NC 116 ( Webster Road)/441 interchange
• Steeple Road and Skyland Drive (Land Use issues)
• Lack of ability to go west on the Great Smoky Parkway at Exit 85
• Points of entry along 74West at Cope Creek, 441 and Business 23 (how many people are wanting to go west)
• U-turns at cope Creek and between exits 83 and 81 on US 74
• Emergency vehicles ability to travel in a timely manner during congested time periods.

Alternatives looked at thus far:

The Task Force was asked to submit alternatives to be considered. Below is a list of the alternatives given by Task Force members:

1. NC 107: Upgrade from US 23 Bus to 4-lane divided section (Cullowhee). Access Management and congestion Management measures should be studied for NC 107 and should include, but are not limited to the following:

• Divided facility from US 23 to current divided cross-section at Cullowhee
• Restrict turning movements at Sunrise Park/NC 107 (right out only onto NC 107 from Sunrise)
• Realign Sunrise with Asheville Hwy to remove offset intersection

A specific corridor study is beyond the scope of a system-wide comprehensive transportation plan study. Access management solutions will be studied in detail during the feasibility study (FS 0814A) already in progress by NCDOT. Much of the congestion onNC 107 from US 23 to Webster Road is due to land use (a lot of businesses and driveways along the facility).It is currently experiencing capacity deficiencies during peak periods and is expected to continue experiencing deficiencies in 2035 unless improvements are implemented.Daily volumes for 2008 range from 24,900 to 30,500 and from 29,000 to 43,200 in 2035. NC 107 was tested as a 4-lane divided facility from US 23 to Cullowhee (existing 4—lane divided section). It functions well with less capacity issues. But changing the existing facility’s cross-section will be costly and take time. But an access controlled facility will better serve the traffic flow and should decrease the number of accidents along this heavily traveled corridor.

2 . 107 Connector: New Facility

Currently the concept of a connector from US 74 to NC 107 near Cullowhee is being studied by NCDOT. It was part of the 1996 thoroughfare plan for the area. Several variations of this alternative was studied: 2-lane at 45 mph, 50mph, and 4-lane divided at 55 mph. I believe a 2-lane facility (on 4-lane right-of-way) at 45 mph is the most realistic of the alternatives. The model shows approximately 10,000 vehicles using this facility on a daily basis by 2035. Approximately fifty percent of these vehicles came from US 74 who wanted to go south on NC 107 towards WCU, Cashiers, and beyond. The other users went to destinations throughout the county. It also offers relief to Cope Creek Road which is used by many wanting to go from US 74 to NC 107 without going through the US 23/NC 107 intersection. It offers relief to NC 107 also though congestion management measures are still needed along NC 107 between US 23 and Cullowhee to ease congestion on this facility.

3. West Main Street (SR 1557) from US Bus 23 to Mill Street: Widen to 4-lanes (2 lanes in each direction)

This facility is currently over capacity during peak periods and will continue to be over capacity in 2035 unless there are improvements. There were approximately 13,800 vpd on this section in 2008 and is expected to grow to 18,400 vpd by 2035. This widening will be costly due to the railroad on the northern edge and the businesses along the southern side. There is also a bridge that would need to be widened.

Along with widening, access/congestion management measures should be considered: removal of traffic light at Mill Street (Spring Street to Allen Street).

4. NC 116 ( Webster Road): Widen and straighten

This facility is a major east-west facility that links NC 107 and US 441. While it is not over capacity by 2035, it is approaching capacity. Widening and straightening would add capacity and safety.

It was suggested to relocate the western portion of NC 116 where it connects with US 441 to a location where an interchange could be added. Volumes do not appear to be high enough to justify this addition at this time, but should be evaluated for the need in the future. In 2008 there were 4300vpd on NC 116 and 18,600VPD on US 441 at this intersection. Currently NC 116 can only make a right turn onto US 441. Those wishing to go south on US 441 must go up and make a u-turn. It does not seem to be a problem at this time, but it is an inconvenience. By 2035, 6300vpd are expected on NC 116 and 28,000vpd on US 441 at this location which will decrease the safety of u-turns.

5. US Business 23 and US 74 Intersection: Allow westbound access to US 74 from US Business 23.

Currently there is not a ramp that allows this maneuver. Those wishing to go westbound on US 23 must go eastbound and then make a u-turn. Adding a ramp was testing and had approximately 1500 vpd using the ramp in 2035. It offered a little relief to West Main Street (less than 500vpd).

6. Cope Creek (SR 1449): widen

Cope Creek Road not only serves those living along this facility, but it also serves as a “short cut” between US Bus 23 and NC 107. There were approximately 3700-5000vpd on this facility in 2008 and 7800-9900VPD are expected by 2035. Widening would help this facility handle the load more safely.

7. Cane Creek/Blanton Branch: Pave and upgrade the existing facilities from Old Cullowhee Rd to US 74.

This alternative was tested with the transportation model. Even when connected and upgraded so that vehicles could travel 40mph, it only serves about 1000 vpd by 2035 and does not appear to offer any relief to Cope Creek Road or NC 107.

8. US 64 (Cashiers): Widen

US 64 through Cashiers is expected to be over capacity by the 2035 with volumes expecting to reach 17,900vpd. The road currently has a capacity of about 11,700vpd. Widening to 4 lanes is recommended east of SR 1117.

9. Ash Settlement (SR 1340): Widen

This facility is currently 16’ wide and is recommended to be widened to a minimum of 22’. Volumes in 2035 range from 3000vpd to 9500vpd.

10. Skyland Drive (SR 1432): Widen from US 23 Bus to SR 1527 * Scotts Creek Church Rd)

This facility is recommended to be widened to 24’. Volumes in 2035 range from 6900vpd to 7800vpd.

11. Grindstaff Road (SR 1513): Widen to include a continuous left-turn lane

Grindstaff Road is a major connector road between Downtown Sylva and the Great Smoky Mountains Expressway. Volumes for 2035 are expected to range between 5900vpd to 9300vpd.

12. NC 107: Upgrade from NC 281 to US 64. Safety improvements and climbing lanes.

The portion north of NC 281 to Cullowhee Road is already programmed in the State Transportation Improvement Program for upgrade. This upgrade is recommended to be continued to US 64 as volumes are expected to reach up to 10,500vpd by 2035.

13. US 441: Reconfigure boulevard from US 74 to Qualla EBCI.

14. US 19: Upgrade form Qualla EBCI to Soco.

15. Centennial Drive: Upgrade

The existing entrance into WCU is expected to have deficiencies by 2035 with volumes reaching 14,900vpd. The university has a master plan and should insure that this entrance can handle expected volumes in the future.

Intersection improvements recommended by the Task Force to be considered for the following intersections:

1. Municipal Drive and W. Main Street
2. North River Road and NC 116
3. NC 107 and US 64

9.25.08 The Southwestern Commission RPO recently hosted an educational seminar for the Jackson County transportation task force and the citizens of the county. Below are the presentations made by the three speakers: Leigh Lane, Walter Kulash, and Drew Joyner.

Leigh Lane's Presentation - Understanding Community Context
Walter Kulash's Presentation - Principles of Road Design
Drew Joyner's Presentation - NCDOT Process Overview; the 3 studies, roles, public

A resource CD was put together by Leigh Lane with the Louis Berger Group. If you would like a copy then please contact Ryan Sherby at the address below.

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