Visual Assessment and Addendum

Transcription

1 Seward Highway Milepost Road and Bridge Rehabilitation Project Visual Assessment and Addendum January 2016 Contents: Addendum for the MP 88 Variant Errata: The and Addendum for the MP 88 Variant were drafted earlier in the development of this project. These documents contain a project footprint that reflects the design at the time the reports were prepared. Subsequent design refinements and ongoing project coordination has resulted in a project footprint that has shifted slightly. The assessment in these documents remains valid. However, while the highway and railroad shift inward under the MP 88 Variant are no longer options under consideration, the MP 88 material site is still included as part of the proposed action. AKSAS Project #58105

2 Draft Environmental Assessment Appendix D. Visual Assessment and Addendum Contents: Addendum for the MP 88 Variant AKSAS Project #58105 Appendix D. Visual Assessment and Addendum

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4 Seward Highway 75 to 90 Road and Bridge Rehabilitation Project Project No. BR-BH-NH-OA3-1(35) DRAFT Prepared for: Alaska Department of Transportation & Public Facilities 4111 Aviation Drive Anchorage, AK Prepared by: HDR Alaska, Inc C Street, Suite 305 Anchorage, AK April 2014

5 Seward Highway 75 to 90 Contents 1.0 Introduction The Seward Highway Project Area Methodology FHWA guidance USFS guidance CPP recommendations Method of assessment Assessment KOP KOP KOP KOP KOP KOP KOP KOP Summary of anticipated impacts References Figures Figure 1. Scenic Integrity Objectives within the project area Figure 2. Management area prescriptions within the project area... 6 Figure 3. Key Observation Points Figures 4 through 7. Views from KOP Figure 8. Aerial view of KOP Figures 9 through 12. Views from KOP Figure 13. Aerial view of KOP Figures 14 through 17. Views from KOP Figure 18. Aerial view of KOP Figures 19 through 22. Views from KOP Figure 23. Aerial view of KOP Figures 24 through 27. Views from KOP Figure 28. Aerial view of KOP Figures 29 through 32. Views from KOP Figure 33. Aerial view of KOP Figures 34 and 35. Views from KOP Figure 36. Aerial view of KOP Figures 37 and 38. Views from KOP Figure 39. Aerial view of KOP Draft April i - HDR Alaska, Inc.

6 Tables Seward Highway 75 to 90 Table 1. Degrees of Scenic Integrity Objectives from Landscape Aesthetics Table 2. Project area management prescriptions and corresponding current and minimum acceptable SIO Draft April ii - HDR Alaska, Inc.

7 Seward Highway 75 to INTRODUCTION This memo assesses the potential impacts to visual resources anticipated from the proposed Seward Highway 75 to 90 Road and Bridge Rehabilitation (Seward Highway 75 to 90) Project in accordance with the National Environmental Policy Act of 1969 (NEPA). The Alaska Department of Transportation and Public Facilities (DOT&PF), in cooperation with the Federal Highway Administration (FHWA), is proposing to rehabilitate approximately 15 miles of the Seward Highway between Milepost (MP) 75 at Ingram Creek and MP 90 near Girdwood. The purpose of the Seward Highway 75 to 90 Project is to address safety problems, roadway deficiencies, and congestion south of Anchorage along the Seward Highway between MP 75 and 90. Improvements would include constructing intermittent northbound and southbound passing lanes between MP 75 and 90. Eight bridges along the proposed project corridor would be either replaced or rehabilitated, and road drainage cross culverts would be installed. Two new parking lots would be added on the inlet side of the highway near the dipnet fishery area between MP 81and THE SEWARD HIGHWAY The Seward Highway is a unique multi-purpose corridor. It is the only overland route between the communities on the Kenai Peninsula and the rest of the state, providing a corridor for utility lines, commercial and industrial transit, and private transportation. It also is widely valued for its scenic beauty and the access it provides to many tourism and recreation opportunities. The scenic appeal of the Seward Highway has long been recognized; the Seward Highway corridor has been officially named an All-American Road by FHWA, a National Forest Scenic Byway by the United States Forest Service (USFS), and an Alaska State Scenic Byway by DOT&PF. These recognitions emphasize the importance and value of the visual resources of the corridor and have served to encourage consideration of impacts to visual aesthetics as the corridor and surrounding communities develop. The Seward Highway Corridor Partnership Plan (CPP) was developed in 1998 as a requirement for nomination of the Seward Highway to the National Scenic Byway Program (NSBP). 1 The CPP was prepared through cooperation between various state and federal agencies, offices, local governments, and private individuals. While it is not an official management tool, the CPP assesses the intrinsic qualities of the Seward Highway that make it eligible for inclusion in the NSBP and makes recommendations to maintain and enhance the quality of the Seward Highway. The Seward Highway was designated as a National Scenic Byway in 1998 and upgraded to an All-American Road in 2000 on the grounds that it has recreational and scenic qualities. 2 Inclusion within the NSBP recognizes that the Seward Highway possesses unique characteristics that do not occur anywhere else in the country and is a tourist destination unto itself. It also qualifies the Seward Highway to receive federal grants from the Department of Transportation for highway improvement projects. Since 1999 the Seward Highway has received seven grants, including two to implement the CPP. 1 Preparation of the CPP was funded in part by a 1996 FHWA grant (SB-1996-AK-02) (FHWA 1996). 2 To qualify as a National Scenic Byway, a road must possess one of six intrinsic qualities: archaeological, cultural, historic, natural, recreational or scenic. To qualify as an All-American Road, a road must possess at least two of the six qualities. Draft April HDR Alaska, Inc.

8 Seward Highway 75 to PROJECT AREA The project area is at the southern end of Turnagain Arm, between Turnagain Pass and the Alyeska Highway intersection. The project area begins at MP 75, as the highway descends out of Turnagain Pass, leaving the Kenai Peninsula, and crosses over Ingram Creek. The highway turns southeast along the base of the Kenai Mountains and crosses the Placer River Overflow (MP 77.9). At the head of Turnagain Arm, it angles east, crosses the Placer River (MP 78.4), and then intersects with Portage Glacier Road (MP 78.8; which leads to Portage Lake and the Anton Anderson Memorial Tunnel to Whittier). The Alaska Railroad (ARRC) joins the highway corridor at this intersection and parallels it north to Anchorage. The highway turns north after the Portage Glacier Road Junction and crosses two branches of Portage Creek (MPs 78.9 and 79.3) and the Twentymile River (MP 81). At approximately MP 82, the highway leaves the broad glacier river valleys and runs northwest along a narrow corridor between the base of the Chugach Mountains and Turnagain Arm. The highway leaves the Chugach National Forest (Forest) at MP 87. The project area ends just after MP 90 at the intersection of the Seward Highway with the Alyeska Highway (which leads to Girdwood). This section of the Seward Highway along the narrow Turnagain Arm affords close views of the Chugach and Kenai mountains, which are home to many species of wildlife, including bald eagles, Dall sheep, and mountain goats. The silty blue-grey waters of Turnagain Arm are critical habitat for the endangered Cook Inlet population of beluga whales, and experience a bore tide that can move up to 35 miles an hour. The broad, flat, glacier river valleys that feed into Turnagain Arm are popular for fishing in the summer and snow machining in the winter. A culturally important site in the area includes the abandoned town of Portage, which subsided 6 feet and flooded during the 1964 Good Friday Earthquake. It is discernible by the tilted cabins and ghostly spruce trees still standing at the former town site. Hundreds of thousands of drivers each year experience these visual resources. 3 These viewers, residents and visitors alike, may be transiting to and from the Kenai Peninsula, accessing recreational resources and cultural attractions, or simply driving to enjoy the scenery in its own right. The views from a moving vehicle are impressive, and scenic overlooks and pullouts established along the roadway allow viewers to stop for better appreciation of the landscape. The ARRC s Coastal Classic and Glacier Discovery routes, which travel from Anchorage to Seward and Whittier, respectively, also travel along this corridor. Because the natural beauty of the Seward Highway corridor is a unique and valuable resource, impacts that may affect visual resources have been evaluated for the proposed project. The impacts of these roadway upgrades on the visual resources of the Seward Highway within the project area are not anticipated to be substantive because the character of the landscape will not change in a major way. The improvements proposed by the Seward Highway 75 to 90 Project would slightly expand and shift the footprint of the existing highway, but the view from the many scenic outlooks and recreation areas along the project area will not substantially change. 3 The average annual daily traffic on the Seward Highway in 2011 was 3,865 vehicles per day at the Ingram Creek Bridge and 7,909 vehicles per day at the Alyeska Highway Junction. These figures correspond with a total annual traffic volume of between 1.4 and 2.9 million vehicles per year travelling through the project area (DOT&PF 2011). Draft April HDR Alaska, Inc.

9 Seward Highway 75 to METHODOLOGY The Seward Highway 75 to 90 Project is under the management of DOT&PF and FHWA. However, the project passes through the Forest, which is under the management of USFS. Both FHWA and USFS have developed guidance for assessing and managing visual resources. This visual impact assessment incorporates the guidance from both agencies. 4.1 FHWA guidance FHWA developed Visual Impact Assessment for Highway Projects in 1981 as a tool to help assess the visual impacts of highway projects for environmental assessments or environmental impact statements in compliance with NEPA. The methodology described in the guidance is based on quantitatively assessing the scenery and visual resources of a project area. This comprehensive methodology is useful for predicting the degree of impacts to visual resources expected from new construction and developing plans to mitigate those impacts. The FHWA guidance recognizes that upgrading an existing road typically has fewer and less significant impacts to visual resources than developing a new highway. For upgrade projects, a more versatile approach is recommended that is better suited for modifications to existing roads. This approach was selected and slightly modified for use in this visual impacts assessment. The central concept of the approach used is the project viewshed. The viewshed of a project is the surface area visible from a point or series of points along the project, and the area from which those points can be seen. The viewshed for this project is defined as the easternmost extent of Turnagain Arm bounded by the Chugach Mountains, including Girdwood Valley and the Twentymile River Valley to the north and east; the Kenai Mountains across Turnagain Arm, Portage Valley, and the Placer River Valley to the south; and Bird Point and Cook Inlet to the west. These boundaries define the viewshed, the area that can be seen from the Seward Highway from MP 75 to 90. Visual impacts related to highway upgrades typically occur within the highway s existing viewshed. Anticipated impacts within a viewshed are determined by selecting critical viewpoints, assessing the visual character and quality of the view from those viewpoints, and describing the changes to the view as a result of the proposed project. 4.2 USFS guidance Landscape Aesthetics: A Handbook for Scenery Management is the USFS document that outlines the Scenery Management System (SMS) developed to create and maintain landscapes having high scenic diversity, harmony, and unity for the benefit of society in general. USFS landscape architects and resource managers employ SMS when developing management plans for National Forests to identify scenic resources within the forest, map these resources, and quantitatively assess their aesthetic value and scenic integrity. 4 SMS assessments help in the development of Scenic Integrity Objectives (SIO) for distinct areas of a National Forest. The SIO describe the existing level of scenic integrity of a landscape and establish the limits of acceptable human alterations. Once a forest management plan is adopted, SIO are used to guide management and monitoring of the scenery resources within the forest. The levels of SIO and definitions from the USFS guidance are shown in Table 1. 4 Scenic integrity is defined by USFS as the degree of direct human-caused deviation in the landscape. Draft April HDR Alaska, Inc.

10 Table 1. Degrees of Scenic Integrity Objectives from Landscape Aesthetics. Scenic Integrity Objective Very High High Moderate Low Very Low Unacceptably Low Seward Highway 75 to 90 Landscape is intact with only minute, if any, deviations. The existing landscape character and sense of place are expressed at the highest level possible. Landscape appears unaltered. Deviations may be present but are not evident. Landscape appears slightly altered. Noticeable deviations must remain visually subordinate to landscape character being viewed. Landscape appears moderately altered. Deviations begin to dominate the valued landscape character being viewed. Landscape appears heavily altered. Deviations may strongly dominate the valued landscape character. Landscape appears extremely altered. Deviations are extremely dominant. Landscapes at this level of integrity need rehabilitation. The Chugach National Forest Revised Land and Resource Management Plan (Revised Forest Plan; 2002) provides guidance for all resource management activities in the Forest, including management of visual resources. The Scenic Quality Goals and Objectives for the Forest are to [m]aintain the outstanding scenic quality of the [Forest] by [conducting] forest management activities consistent with Scenic Integrity Objectives mapped in the Revised Forest Plan. The current SIO for the sections of the project area that are within the Forest are designated as moderate for most of the transportation and utility corridor that corresponds with the Seward Highway and high for all surrounding Forest lands (Figure 1). In addition to mapping the SIO, the Revised Forest Plan divides the Forest into management areas according to accepted land use, resource extraction regulations, and management direction. Each management area prescription has a range of acceptable SIO, below which the scenic integrity of management areas of that prescription should not fall. The management area prescriptions in the project area are shown in Figure 2; the minimum allowable SIO for each prescription 5 are shown in Table 2. Table 2. Project area management prescriptions and corresponding current and minimum acceptable SIO. Management prescription Current SIO in project area 1 Minimum acceptable SIO 2 Backcountry High Moderate Recreation River High Moderate Scenic River High Moderate Fish, Wildlife and Recreation High Low Transportation/Utility Corridor Moderate/High Low Not Forest land N/A N/A 1 USFS USFS The Revised Forest Plan implemented annual monitoring of deviations from mapped SIO resulting from project implementation and other changes within the Forest to ensure management of visual resources in accordance with the Scenic Quality directives put forth in the Revised Forest Plan. One of the monitoring methods is evaluation of the degree to which SIO are within the allowable ranges. Draft April HDR Alaska, Inc.

11 Seward Highway 75 to 90 Figure 1. Scenic Integrity Objectives of Chugach National Forest land within the project area. Key Observation Points are described in Section 4.4, Methods of assessment. Draft April HDR Alaska, Inc.

12 Seward Highway 75 to 90 Figure 2. Management area prescriptions of Chugach National Forest lands within the project area. Draft April HDR Alaska, Inc.

13 Seward Highway 75 to CPP recommendations While not an official management tool, the CPP makes comprehensive recommendations for management of the Seward Highway that merit consideration. The first of three Keystone Strategies put forth in the CPP is that The Seward Highway should provide a safe, aesthetic and world-class driving experience. One of the critical actions to implement Keystone Strategy 1 is Aesthetic Consideration, which includes View Management. The recommendation for this critical action is to: inventory significant views and viewsheds found along the Seward Highway. This can be accomplished through photographic inventories, community and resource manager s site visits and observations, or more formal USFS inventory methodologies. 4.4 Method of assessment Following identification of the overall project viewshed, eight Key Observation Points (KOP) from which viewers experience the visual resources of the project area were selected. Scenic pullouts, recreation areas, and community hubs were chosen for their sensitivity to impacts to visual quality and high levels of use by different types of viewers. Six of the KOPs are along the highway within the project area, one is immediately adjacent to the project area, and one is a point from which the project area can be seen. Only one KOP that views the project area was chosen because much of the viewshed from which the project area is visible is difficult to access and receives comparatively fewer viewers than the highway corridor. The KOPs selected are shown in Figure 3 and described in this report (see Section 5, Assessment). The visual character of the landscape visible from each KOP was assessed using Google Earth 6 and during a field visit, and are described according to the FHWA guidance. Elements including: dominant features; ground cover (vegetation, waterbodies); line, color, and texture; and manmade developments were considered for the foreground, middleground, and background views. 7 Anticipated impacts to the foreground, middleground, and background views from each KOP were assessed based on the proposed highway design plans. Because proposed upgrades to the highway are mostly on the current alignment and result in only slight modifications to the visual character, post-project renderings were not produced. Additionally, at each KOP within the Forest, the USFS management area prescriptions in the vicinity were identified and the potential impacts to the SIO as a result of the proposed project were assessed. The field visit was conducted on December 27, Temperatures were between 5 F and 10 F, and skies were overcast with high cloud cover. No precipitation fell during the field visit. KOPs were visited between 2:00 PM and 3:00 PM (sunset on the date of the field visit occurred at 3:47 PM). Photographs were taken from each KOP, which were used to characterize the visual character of the landscape in the winter months This visual impacts assessment includes a photographic inventory, site visit and observations, and incorporation of USFS inventory methodology, and is consistent with the recommendations of the CPP. 6 Google Street View images used in this assessment were taken in August These images were used to characterize the visual character of the landscape during the summer months. 7 Based on the FHWA guidance, the foreground is from 0 to ¼ mile, the middleground is from ¼ to 3 miles, and the background is more than 3 miles from the point of observation. Draft April HDR Alaska, Inc.

14 Seward Highway 75 to 90 Figure 3. Key Observation Points selected to assess visual impacts of the proposed project. Draft April HDR Alaska, Inc.

15 Seward Highway 75 to ASSESSMENT The selected KOPs, as shown on Figure 3 and discussed in the following section, include: KOP 1: Slow vehicle turnout at MP 75 KOP 2: Placer River access KOP 3: Portage Glacier Road intersection KOP 4: ARRC Portage train depot KOP 5: Twentymile River access KOP 6: MP 81.5 (site of proposed parking lot) KOP 7: Alyeska Highway intersection KOP 8: Pullout east of Bird Point 5.1 KOP 1 Location and landform KOP 1 is at the slow vehicle turnout on the north side of the highway at MP 75.5, southeast of the bridge over Ingram Creek. It is at the flat toe of slope at the base of the Kenai Mountains at the entrance to Turnagain Pass. KOP 1 is at the edge of the project area. Landscape character Foreground: The foreground view from KOP 1 is dominated by the paved pullout, the road leading to the Ingram Creek access point, and the highway (Figure 4). From the north to the east, shrubby vegetation along the inlet side of the highway partially obscures the view toward Turnagain Arm (just barely visible in Figure 4 and completely obscured in Figure 5). To the southeast, the highway extends in a straight line. Immediately adjacent to the pullout to the west is Muddy Creek, a tributary to Ingram Creek, which runs through a field of fireweed that blooms purple in the summer (visible on the right of Figure 6). The management area prescriptions in the foreground of KOP 1 are Transportation/Utility Corridor along the highway, and Fish, Wildlife and Recreation in the surrounding areas. The management areas around KOP 1, including the area designated Transportation/Utility Corridor, have a SIO of High. Middleground/Background: In the middleground from the north to the southeast, the Chugach Mountains are visible across Turnagain Arm (Figure 5), although frequent cloud cover can obscure the tops of the Chugach Mountains from view (Figure 4). The highway extends straight to the southeast, creating a line that draws the eye into the background toward the valleys at the end of Turnagain Arm (Figure 6). The middleground from the south to the northwest is dominated by the Kenai Mountains. Vegetation consists of deciduous trees beyond Muddy Creek and coniferous trees up the slopes of the Kenai Mountains (Figure 7). To the northwest, the highway curves left toward Turnagain Pass. In the middleground, the management area prescription along the highway is Transportation/Utility Corridor, and Fish, Wildlife and Recreation in the adjacent areas. The Kenai and Chugach mountains are designated Backcountry prescription. The management areas around KOP 1 all have a SIO of High. Draft April HDR Alaska, Inc.

16 Seward Highway 75 to 90 Figure 4.View of KOP 1, a slow vehicle turnout at MP 75.5 on the northeast side of the highway. View is looking north across Turnagain Arm with the Chugach Mountains in the background. Changes to the highway across Turnagain Arm will not be discernible at this distance. Figure 5. View looking northeast from KOP 1. Shrubby vegetation obscures the view of Turnagain Arm, including in the winter when deciduous shrubs are leafless. The Chugach Mountains are visible in the background. Changes to the highway across Turnagain Arm will not be discernible at this distance. Figure 6. View looking southeast from KOP 1 along the current highway alignment. Two lanes of widening would occur to the left side of this photo. The Kenai Mountains are visible in the middleground along the right side of the photo. Figure 7. View looking southwest from KOP 1 across the highway. The foreground is dominated by the highway. Muddy Creek is obscured from view by the snow berm. The Kenai Mountains are visible in the middleground. This view will not be impacted by the proposed project. Draft April HDR Alaska, Inc.

17 Seward Highway 75 to 90 Anticipated impacts Figure 8. Aerial view of KOP 1. Foreground: Looking southeast from KOP 1, the highway will be widened from two lanes to four (two northbound and two southbound). The additional paved area will be added to the northeast, on the inlet side of the highway. The highway will continue to be the dominant feature and the sightline along the highway will be maintained, and the character of the view will not change in a substantive way. The primary change will be a wider highway in the foreground with vegetation removed along the current highway s margin. Because the USFS management area prescriptions in the foreground of KOP 1 are Transportation/Utility Corridor, the highway widening will not affect the SIO. Middleground: In the middleground looking southeast, the highway will be widened by two lanes (one additional northbound lane and one additional southbound lane). The straight line of the highway will be maintained. Some vegetation alongside the highway will be removed. To the northwest the bridge across Ingram Creek will be rehabilitated, which will not result in any visual change. The proposed impacts will occur within the Transportation/Utility Corridor and will not affect the SIO. Background: Looking northeast and east, the project area is visible across Turnagain Arm, although the view is mostly obscured by vegetation. Even with the highway widened and Draft April HDR Alaska, Inc.

18 Seward Highway 75 to 90 vegetation removed, the changes to the background view across the inlet to or from the highway will not be discernible at this distance, and, consequently, the SIO will not be affected. 5.2 KOP 2 Location and landform KOP 2 is at the Placer River access point on the west bank of the river, on the south side of the highway at MP It is in the wide, flat valley at the end of Turnagain Arm where the Placer River meets Portage Creek. Landscape character Foreground: The foreground view is dominated by the Placer River (which is about 400 feet wide at KOP 2 and silty blue-grey), the parking lot and boat launch at the access point, and the highway bridge across the Placer River. To the north, the Placer River continues downstream under the bridge and converges with Portage Creek #1. The Alaska Wildlife Conservation Center (AWCC) is visible on the east bank after the convergence. The buildings of the AWCC, although small in scale, have red roofs that contrast with the green of the vegetation (and the white of snow in the winter) and make them more visually dominant (Figure 9, Figure 10). Looking east across the river, the bridge is on the left-hand side and the highway continues to the east (Figure 11). Power lines cross the river on the right-hand side. Taller shrubs and cottonwood trees are visible across the river. The foreground view to the south from the parking area is of tall shrubs (Figure 12). Vegetation around the parking lot and highway is mostly shrubs, grass, and fireweed (Figure 9, Figure 12). The management area prescriptions in the foreground of KOP 2 are Transportation/Utility Corridor along the highway; Fish, Wildlife and Recreation in the surrounding areas to the west and south; and Recreational River on the east bank of the Placer River at its convergence with Portage Creek #1. 8 The Transportation/Utility Corridor management area has a SIO of Moderate, and all other areas around KOP 2 have a SIO of High. Middleground/Background: Looking east, the turn toward the Portage Glacier Road intersection is visible, although the intersection is obscured by vegetation (Figure 11). The Chugach Mountains are visible to the east and the Kenai Mountains to the west in the middleground. To the south, the Placer River stretches upstream, and the Placer River Valley is visible into the background (Figure 12). The Kenai Mountains, Chugach Mountains, and Placer River Valley are designated Backcountry prescription with a SIO of High. 8 The Portage River System is designated a Recreational River in the Revised Forest Plan. Draft April HDR Alaska, Inc.

19 Seward Highway 75 to 90 Figure 9. View to the northeast from KOP 2 across the Placer River. The red roofs of the AWCC are visible on the far bank of the Placer River in the middleground. The bridge will be removed, and a new bridge constructed further south. The view northeast toward the mouth of the Placer River will not be obscured. Figure 10. View to the northeast from KOP 2 in the winter. The red roofs of the AWCC are covered with snow. The new bridge will be moved south, and the view northeast toward the mouth of the Placer River will not be obscured. The Chugach Mountains are visible in the middleground. Figure 11. View to the east from KOP 2 across the highway bridge over Placer River. The bridge will be removed, and a new three-lane bridge constructed further south (right in this photo). The existing bridge across the Placer River will be removed and the new three-lane highway will continue east from the new bridge and curve to the north toward the Portage Glacier Road intersection. Figure 12. View to the south from the parking area at KOP 2. Tall shrubs obscure the view toward the Placer River Valley. Snow and ice conditions during the site visit prevented documentation of the view upriver to the south, which will include the new highway bridge. The boat launch will be maintained and the existing highway will be used as an access road to the boat launch. Draft April HDR Alaska, Inc.

20 Seward Highway 75 to 90 Anticipated impacts Figure 13. Aerial view of KOP 2. Foreground: The bridge across the Placer River will be replaced. The current highway leading to the pullout will be maintained for access to the Placer River. Looking east from KOP 2, the existing bridge and highway on the east side of the Placer River will be removed. The new bridge will be farther to the south, on the right-hand side of the access point. At three lanes (one northbound and two southbound), the new bridge will be wider than the existing bridge. The view to the south from the access point will be partially shielded by the new bridge, and the view to the north will be less obscured and no longer include a bridge. The bridge and the river will still dominate the foreground view. The proposed activity will not change the SIO of the management areas. To the west the existing highway will be maintained as an access road for the Placer River boat launch. The highway will be slightly straightened toward the Placer River Overflow bridge crossing. Middleground: To the east, the highway toward the Portage Glacier Road intersection will be smoothed and shifted slightly to the north. The new highway will be three lanes (one northbound and two southbound), and the north and southbound lanes will be separated by a paved median. Due to vegetation removal for construction, the Portage Glacier Road intersection will be more Draft April HDR Alaska, Inc.

21 Seward Highway 75 to 90 visible from KOP 2 than the current curve. The middleground view will not change substantially. The proposed activity will not change the SIO of the management areas. Background: The project area is not within the background view of KOP KOP 3 Location and landform KOP 3 is at the intersection of the Seward Highway with Portage Glacier Road at MP It is within the wide, flat valley at the end of Turnagain Arm where the Placer River meets Portage Creek. Landscape character Foreground: The foreground view is dominated by the road, railroad tracks, and associated infrastructure and utilities. While the majority of the project area does not have streetlights or artificial lighting, the Portage Glacier Road intersection has streetlights, power lines, and signage related to the intersection and the railroad crossing. To the north, the highway bridge across Portage Creek #1 is visible (Figure 14). Two hundred feet to the east, where Portage Glacier Road crosses the railroad tracks, there are several small railroad facility buildings, parking for railroad vehicles, and heavy machinery (Figure 15). Immediately south of the intersection is another gravel pad with a two-story structure (advertised as available for lease as of December 27, 2013), but it is mostly obscured from view by large cottonwoods (Figure 16). To the southwest, the highway curves to the west toward the Placer River. Immediately to the west of the intersection is large gravel pad with no structures (Figure 17). The management area prescriptions in the foreground of KOP 3 are Transportation/Utility Corridor along the highway; Recreation River on the west side of the highway; and Fish, Wildlife, and Recreation to the southwest. To the east, the ARRC maintains a right-of-way that is not Forest land. The Transportation/Utility Corridor management area has a SIO of Moderate, and all other areas around KOP 3 have a SIO of High. The ARRC right-of-way does not receive a SIO. Middleground/Background: In the middleground to the southwest, the bridge across Placer River is obscured by shrubby vegetation and cottonwoods and is not visible from KOP 3. The Chugach Mountains are visible to the north and east (Figure 15), and the Kenai Mountains to the south (Figure 16) and west. To the southeast, Portage Valley, which roughly determines the boundary between the Chugach and Kenai mountains, is visible in the background (on the right in Figure 15). The Kenai and Chugach mountains are designated Backcountry prescription. The Portage River Valley is designated Recreational River, and Fish, Wildlife, and Recreation management areas. All areas in the middleground and background of KOP 3 have a SIO of High. Draft April HDR Alaska, Inc.

22 Seward Highway 75 to 90 Figure 14. View to the north from KOP 3. The highway bridge across Portage Creek #1 is visible. The new highway will be separated by a paved median, with two northbound lanes and one southbound lane. The highway bridge will be removed and replaced with a new three-lane bridge. Figure 15. View to the east from KOP 3 down Portage Glacier Road. ARCC machinery and facilities are visible on the right side of Portage Glacier Road (behind the RV in the photo). Portage Glacier Valley is visible in the background on the right. This view will not be impacted by the proposed project. Figure 16. View to the south from KOP 3. A cleared gravel pad to the south of the intersection is mostly obscured by trees. The curve toward the Placer River will be smoothed and the existing highway will be removed. The new highway will be separated by a paved median, with one northbound lane and two southbound lanes. The new three-lane bridge across the Placer River will be visible. Figure 17. View to the west from KOP 3. The sign on the right identifies the route as the Seward Highway Scenic Byway. The intersection will be shifted to the west and Portage Glacier Road will be extended to meet the new curve of the highway. Draft April HDR Alaska, Inc.

23 Seward Highway 75 to 90 Anticipated impacts Figure 18. Aerial view of KOP 3. Foreground: The intersection of the highway with Portage Glacier Road will be shifted to the west where the gravel pad is currently located. Portage Glacier Road will be extended to the west to meet the smoothed curve of the highway. The intersection will be perpendicular to the highway and include separate turn lanes for northbound traffic turning onto and off Portage Glacier Road. On either side of the intersection, the highway will be widened to three lanes (one northbound and two southbound on the south side of the intersection, and two northbound and one southbound on the north side of the intersection), and the north and southbound lanes will be separated by a paved median. The existing roadway will be removed. Looking north, the highway bridge across Portage Creek #1 will be shifted to the west. The new bridge will be three lanes, two northbound and one southbound, and the northbound and southbound lanes will be separated by a paved median. The bridge over Portage Creek #1 will be more visible due to the smoothed curve of the new intersection and clearing of vegetation for construction. Across Portage Creek #1 the existing highway will be removed and the intersection with the AWCC access road will be moved further north. The proposed activity will not change the SIO of the management areas. Draft April HDR Alaska, Inc.

24 Seward Highway 75 to 90 Middleground: To the southwest, the curve toward the Placer River will be smoothed, and the bridge over the Placer River will be more visible after vegetation is cleared for construction. The proposed activity will not change the SIO of the management areas. Background: The project area is not within the background view of KOP KOP 4 Location and landform KOP 4 is at the ARRC Portage Depot at MP 80.3, near the mouth of the Twentymile River. Landscape character Foreground: The foreground is dominated by a large gravel parking area that serves the Portage Depot. On the north side of the gravel lot the foreground view is dominated by a tall utility tower and utility box within a fenced area (Figure 19). Train tracks and power lines run parallel to the highway along the eastern edge of the gravel lot (Figure 20). On the gravel lot to the south is a wooden structure with a red roof that serves seasonally as the Kenai Peninsula Tourism Information Center (Figure 21). Several port-a-potties are maintained to the north of the structure in the summer. The highway is at a slightly higher elevation than the parking area and depot, limiting the foreground view to the west (Figure 22). The management area prescriptions in the foreground of KOP 4 are Transportation/Utility Corridor along the highway; Fish, Wildlife and Recreation on the west of the highway to the Arm; and Scenic River to the northeast. 9 The parking lot, railroad tracks, and service area along the tracks are within ARRC right-of-way and are not Forest land, so they do not have a management prescription. The Transportation/Utility Corridor management area has a SIO of Moderate, and all other areas around KOP 4 have a SIO of High. ARRC property and right-ofway do not receive a SIO. Middleground/Background: The Chugach Mountains are visible in the middleground to the north, east, and south. The middleground view north towards the Twentymile River is obscured by the utility tower. A long, narrow service area used by the ARRC extends ½ mile to the south, bordered by the train tracks on the west and the highway on the east (Figure 21). The tops of the Kenai Mountains are visible to the west beyond the tall shrubs and spruce trees that grow between the highway and the ½ mile between KOP 4 and Turnagain Arm (Figure 22). Turnagain Arm is not visible at this location due to the elevation difference between the parking lot and the highway. The background views from KOP 4 are limited by vegetation to the tops of the Kenai and Chugach mountains. The Kenai and Chugach mountains are designated Backcountry prescription with a SIO of High. 9 The Twentymile River System is designated a Scenic River in the Revised Forest Plan. Draft April HDR Alaska, Inc.

25 Seward Highway 75 to 90 Figure 19. View to the north from KOP 4. The tall utility tower is dominant in the foreground and obscures the view toward the Twentymile River. The highway will be shifted slightly to the east beyond the utility tower. Figure 20. View to the east from KOP 4. Train tracks, buried under the snow, and power lines run along the east edge of the gravel lot. The Chugach Mountains are visible in the middleground. This view will not be impacted by the proposed project. Figure 21. View to the south from KOP 4. In the summer, the structure serves as a tourism information center, port-a-potties are kept on the north side of the structure, and free coffee is advertised on the white sign. The highway will be shifted slightly to the west, which will not be discernible from KOP 4. Figure 22. View to the west from KOP 4. The elevation difference between the parking area and the highway obscures the view of the Turnagain Arm. This view will not be impacted by the proposed project. Draft April HDR Alaska, Inc.

26 Seward Highway 75 to 90 Anticipated impacts Figure 23. Aerial view of KOP 4. Foreground: Looking north, the highway will be shifted slightly to the east. Looking south, the highway will be shifted slightly to the west. The realigned highway will be more visible after vegetation is cleared for construction, although the utility tower obscures some of the view of the highway to the north. Because the KOP is at a slightly lower elevation than the highway, the changes to the highway to the south will not be visible. The proposed activity will not change the SIO of the management areas. Middleground: In the middleground to the north, the highway and the bridge across the Twentymile River will be shifted to the east. The realigned highway and new bridge across the Twentymile River will be more visible after vegetation is cleared for construction, although the utility tower obscures some of the view of the highway to the north. In the middleground view looking south, the highway will be shifted slightly to the west. The proposed activity will not change the SIO of the management areas. Background: The project area is not within the background view of KOP 4. Draft April HDR Alaska, Inc.

27 5.5 KOP 5 Location and landform Seward Highway 75 to 90 KOP 5 is at the Twentymile River access point on the west side of the highway at MP 80.8, on the north side of the mouth of the river. Landscape character Foreground: Across the highway to then north and east from KOP 5, tall cottonwoods and low shrubs obscure the foreground view of the railroad tracks. To the southeast is the highway bridge across the river, and 375 feet upriver (to the east), the railroad bridge and power lines are visible (Figure 24). The dominant feature of the foreground view is the mouth of the Twentymile River to the south and west (frozen and snow-covered in Figure 25, visible in Figure 26). At the access point, the floodplain is approximately 1,200 feet wide, and it widens until it meets Turnagain Arm. When the river levels are low and the tide is out, the floodplain is mostly light grey silt and mud. There is a parking area, a boat launch, and several signs at the access point, which is heavily used during the summer for hooligan fishing and boating on the Twentymile River. Vegetation along the flats to the northwest (Figure 27) and southwest across the river is mostly halophytic grasses with some low shrubs. The management area prescriptions in the foreground of KOP 5 are Transportation/Utility Corridor along the highway and Fish, Wildlife, and Recreation to the northwest of the highway corridor. The railroad right-of-way is not Forest land, so it does not have a management prescription. The Transportation/Utility Corridor management area has a SIO of Moderate, and all other areas around KOP 5 all have a SIO of High. ARRC property and right-of-way do not receive SIO. Middleground: In the middleground, the Chugach Mountains are visible to the north, east, and south. The Twentymile River Valley is visible to the east, though mostly obscured by tall vegetation along the railroad tracks. The Kenai Mountains are visible across Turnagain Arm to the west (Figure 26). The Twentymile River Valley is designated Scenic River, and the Kenai and Chugach mountains are designated Backcountry prescription. These management areas have a SIO of High. Background: The Chugach Mountains, Portage Valley, and Placer River Valley are visible to the south (Figure 25). The project area is visible across Turnagain Arm. The Chugach Mountains are designated Backcountry prescription, and Portage Valley is designated Recreational River. These management areas have a SIO of High. Bird Point and the Chugach Mountains define the background to the northwest (Figure 27). The Chugach Mountains to the north are not within the Forest and do not receive a SIO. Draft April HDR Alaska, Inc.

28 Seward Highway 75 to 90 Figure 24. View to the southeast from KOP 5 across the Twentymile River. The highway bridge will be shifted slightly to the east. The railroad bridge and power lines over the river are visible in the left of the photo. Figure 25. View to the south from KOP 5. In the foreground the mouth of the Twentymile River is frozen over and covered with snow. The Chugach Mountains, Portage Valley, and Placer River Valley are visible in the background. Changes to the highway across Turnagain Arm will not be visible at this distance. Figure 26. View of KOP 5 looking west, including the parking area for access to the Twentymile River. At high tide, the foreground is dominated by the silty waters of the river; at low tide, the view is replaced by grey mudflats. This view will not be impacted by the proposed project. Figure 27. View to the northwest from the parking area at KOP 5. The flats along the Arm are snow covered in the winter, although shrubby vegetation is still visible. Bird Point is visible in the background at the center of the photo. This view will not be impacted by the proposed project. Draft April HDR Alaska, Inc.

29 Seward Highway 75 to 90 Anticipated impacts Figure 28. Aerial view of KOP 5. Foreground: Looking southeast, the bridge across the river will be shifted 75 feet to the east. The parking area will be extended to meet the slightly realigned highway. Tall vegetation on the south side of the river will be removed during construction, increasing visibility toward the railroad depot at KOP 4. The proposed activity will not change the SIO of the management areas. Middleground: Looking west and south, the project area is visible across Turnagain Arm. Changes to the highway will not be discernible at this distance. The proposed activity will not change the SIO of the management areas. Background: Changes to the highway will not be discernible from this distance. The view of the project area in the background will still be of mountains with a highway at the base. Changes to the highway will not impact the SIO visible from KOP 5. Draft April HDR Alaska, Inc.

30 5.6 KOP 6 Location and landform Seward Highway 75 to 90 KOP 6 is along the highway at MP 81.5 where the flats at the mouth of the Twentymile River Valley begin. Landscape character Foreground: In the foreground of KOP 6 to the north and east a long, thin, swale of wetland runs along the inland side of the highway, backed by tall shrubs and cottonwoods. Power lines are visible behind the trees, but the vegetation obscures the railroad tracks (Figure 29). The highway comprises the foreground view to the southeast (Figure 30). Mudflats vegetated with halophytic grasses and short shrubs extend south to the mouth of the Twentymile River. The dominant feature of the foreground view from KOP 6 is the Turnagain Arm to the southwest, west, and northwest. There is not currently a pullout at this location, but cars frequently park on the shoulder to access Turnagain Arm for hooligan fishing and kiteboarding (Figure 31 and Figure 32). The management area prescriptions in the foreground of KOP 6 are Transportation/Utility Corridor along the highway and Fish, Wildlife, and Recreation to the northwest of the highway corridor to the railroad tracks. The Transportation/Utility Corridor management area has a SIO of Moderate, and all other areas around KOP 6 have a SIO of High. The ARCC right-of-way is not Forest land, so it does not have a management prescription or SIO. Middleground: The highway extends in a straight line as far as it is visible to the southeast (Figure 30) and northwest (Figure 32); the curve at the bridge over the Twentymile River to the southeast is just out of view. In the middleground, the Chugach Mountains are to the north and southeast. The Twentymile River Valley is visible to the east, although mostly obscured by tall vegetation (Figure 29). The Kenai Mountains are visible across Turnagain Arm to the southwest and west (Figure 31). The project area is visible in the middleground to the southwest across Turnagain Arm. The Kenai and Chugach mountains are designated Backcountry prescription, and the Twentymile River Valley is designated Scenic River. These management areas have a SIO of High. Background: The Chugach Mountains, Placer River, and Portage Valley are visible to the south (Figure 30 and Figure 31). The Kenai and Chugach mountains are designated Backcountry prescription, and Portage Valley is designated Recreational River. These management areas have a SIO of High. Bird Point and the Chugach and Kenai mountains define the background to the northwest (Figure 32). The Chugach Mountains to the north are not within the Forest and do not receive a SIO. Draft April HDR Alaska, Inc.

31 Seward Highway 75 to 90 Figure 29. View to the northeast from KOP 6. Power lines are visible behind the cottonwood trees. Trees and shrubs obscure the view up the Twentymile River Valley. The highway in this view will be widened to three lanes (two northbound and one southbound). Figure 30. View to the southeast from KOP 6. The highway will be widened slightly to the left for approximately ½ mile. The straight line of the highway will still be the dominant feature of the view. Figure 31. View to the southwest from KOP 6. A parking area will be constructed, changing the foreground view from vegetated flats to a paved parking area. The Kenai Mountains and the project area are visible in the middleground across Turnagain Arm. Changes to the highway will not be discernible across Turnagain Arm. Figure 32. View to the northwest from KOP 6. The highway will be widened one lane to the right, resulting in removal of vegetation. A pathway will be on the left of the highway, separated by a guardrail. The straight line of the highway will still be the dominant feature of the view. Bird Point is visible in the background. Draft April HDR Alaska, Inc.

32 Seward Highway 75 to 90 Anticipated impacts Figure 33. Aerial view of KOP 6. Foreground: A parking lot will be constructed on the inlet side of the highway (southeast from KOP 6). This will result in an increased area of paved surface visible in the foreground from KOP 6 and a reduced amount of vegetation. Increased access to Turnagain Arm by fishers and recreationalists may further degrade vegetation around the parking lot. The highway will be widened one lane on the upland side to allow for a northbound passing lane, and a pathway will connect the parking lot at MP 81 to a second parking lot at MP 83. The pathway will be separated from the highway by a guardrail. The proposed activity will not change the SIO of the management areas. Middleground: To the northwest, the highway will be widened one lane on the upland side (the northeast) to allow for a northbound passing and the pathway. To the southeast, the highway will be widened slightly to the upland side for approximately ½ mile. The straight line of the highway will still dominate the view and draw the eye to the horizon. Looking southwest, the project area is visible across Turnagain Arm. Changes to the highway will not be discernible at this distance. The proposed activity will not change the SIO of the management areas. Background: The project area is not within the background view of KOP 6. Draft April HDR Alaska, Inc.

33 5.7 KOP 7 Location and landform Seward Highway 75 to 90 KOP 7 is at the intersection of the Seward Highway with the Alyeska Highway, which leads to Girdwood at the end of the Girdwood Valley. In the northwest corner of the intersection, there is a heavily trafficked gas station and strip mall. This is the most developed area on the Seward Highway along Turnagain Arm. KOP 7 is at the edge of the project area. Landscape character Foreground: In the northwest corner of the intersection, there is a heavily trafficked gas station and strip mall that houses a pizza parlor, an ice cream shop, a bakery, and the Girdwood post of the Alaska State Troopers. This is the most developed location in the project area. The strip mall is brown with small, steep ornamental peaks that are evocative of ski chalets, referencing the Mount Alyeska ski resort that is a fixture of the community. The foreground view from KOP 7 is not within the Forest and thus does not receive management area prescriptions or a SIO. Middleground: The highway extends to the southeast to a bridge across Glacier Creek, then curves south-southeast to cross Virgin Creek. The project area ends at the bridge over Glacier Creek. The project area is obscured by shrubby vegetation (Figure 34). To the south and southwest are flats covered with grasses. Immediately southwest from the intersection are dead spruce trees that were killed when the flats subsided into the salt water during the 1964 Earthquake but that remain standing. Power lines run along the shoreline from the southeast to the northwest. Grassy flats extend from the intersection to the northwest, across Tidewater Slough, to the Chugach Mountains. Girdwood Valley extends to the northeast. The town of Girdwood is not visible. Mount Alyeska, Alaska s largest ski resort, is visible to the west behind the gas station. At night in the winter, the lighted ski runs are highly visible from the highway. The middleground view from KOP 7 is not within the Forest and does not receive management area prescriptions or a SIO. Background: The project area at the end of Turnagain Arm is visible in the background to the southeast (Figure 35). The Kenai Mountains are visible to the southwest across Turnagain Arm. The Kenai Mountains are within the Forest and are designated Backcountry prescription with a High SIO. Draft April HDR Alaska, Inc.

34 Seward Highway 75 to 90 Figure 34. View to the east from KOP 7. The gas station and strip mall development are dominant in the foreground. In the winter, the lighted ski runs on Mount Alyeska (leftmost peak, obscured by clouds in the photo) are prominent in the middleground. The bridges over Glacier and Virgin creeks will be replaced in their current locations. Changes to the highway alignment will begin south of Virgin Creek. The project area in the middleground to the southeast is obscured by vegetation along the highway. Changes to the highway beyond Virgin Creek will not be visible from KOP 7. Figure 35. View to the southeast from KOP 7. Changes to the highway at the end of Turnagain Arm in the background will not be discernible from this distance. Draft April HDR Alaska, Inc.

35 Seward Highway 75 to 90 Anticipated impacts Figure 36. Aerial view of KOP 7. Foreground: The bridge over Glacier Creek will be replaced in its current location. No changes will be made to the highway in the foreground view of KOP 7. Middleground: The bridge over Virgin Creek will be replaced in its current location. The highway will be widened by one lane on the inlet side of the highway to allow for a southbound passing lane south of Virgin Creek. These changes will not be discernible from KOP 7. Background: Changes to the highway will not be discernible from this distance. The view of the project area in the background will still be of mountains with a highway at the base. Changes to the highway will not impact the SIO visible from KOP 7. Draft April HDR Alaska, Inc.

36 5.8 KOP 8 Location and landform Seward Highway 75 to 90 KOP 8 is located at a pullout to the east of Bird Point, within Chugach State Park. This KOP is outside the project area. Landscape character Foreground: The dominant feature of the foreground view from KOP 8 is Turnagain Arm. The scenic pullout has interpretive signs with information on bore tides and the beluga population of Turnagain Arm. A wide median separates the pullout from the highway, which is three lanes (two southbound, one northbound) in this section. The highway stretches in straight segments to the east and west. Power lines and railroad tracks parallel the highway to the north. The foreground view from KOP 8 is not within the Forest and does not receive management area prescriptions or a SIO. Middleground: In the middleground to the north, the Chugach Mountains rise steeply from the highway. The lower slopes are covered with shrubby vegetation and spruce trees. The peaks are bare and rocky. To the east, the highway cuts narrowly between the Arm and the base of the Chugach Mountains, as is typical in this section of the highway (Figure 37). The Kenai Mountains are visible to the south across Turnagain Arm. To the west, the highway curves north past Bird Point. The middleground view from KOP 8 is not within the Forest and does not receive management area prescriptions or a SIO. Background: The project area is visible in the background to the east (Figure 37) and southeast (Figure 38). The highway corridor and the Transportation/Utility Corridor management area are subordinate to the visible landscape at this distance. The Chugach and Kenai mountains are visually dominant. They are designated Backcountry prescription and have a SIO of High. Draft April HDR Alaska, Inc.

37 Seward Highway 75 to 90 Figure 37. View to the east from KOP 8. The Chugach Mountains are visible in the background. Changes to the highway will not be discernible at this distance. Figure 38. View to the south from KOP 8. The Chugach and Kenai mountains are visible in the background. Changes to the highway will not be discernible at this distance. Draft April HDR Alaska, Inc.

38 Seward Highway 75 to 90 Anticipated impacts Figure 39. Aerial view of KOP 8. Foreground/Middleground: The project area is not within the foreground or middleground views of KOP 8. Background: Changes to the highway will not be discernible from this distance. The view of the project area from the pullout will still be of mountains with a highway at the base. Changes to the highway will not impact the SIO visible from KOP SUMMARY OF ANTICIPATED IMPACTS Impacts to the visual resources of the Seward Highway corridor as a result of the Seward Highway 75 to 90 Project are expected to be minimal. The existing highway is being upgraded and improved in its current location with only slight realignments. Replacement of some bridges will slightly change the view from some observation points along the highway. The highway is visually subordinate within the landscape throughout the project area; in other words, the water, mountains, and glaciers beyond are the visually dominant features within the project area. This will not change as a result of the proposed upgrades. Overall, the character of the visual landscape will not change; views from and of the project area will still include a highway, bridges, pullouts, and parking areas. Draft April HDR Alaska, Inc.

39 Seward Highway 75 to 90 Additionally, the project impacts within the Forest will occur mostly within the existing 200- foot-wide Transportation/Utility Corridor management area. This area follows the existing highway corridor and corresponds to the highway right-of-way. This area has a Moderate SIO, which is consistent with the slight deviations to the landscape caused by the highway and utility lines throughout the corridor. In keeping with the Moderate SIO, these deviations are subordinate to the landscape. Altering and expanding the highway within this management area will not affect the current SIO. Around the south side of Turnagain Arm, from roughly the Placer River Overflow to where the highway turns southwest toward Turnagain Pass, all Forest lands (including the Transportation/Utility Corridor management area) are assigned a High SIO. The highway is the only development through this section and the landscape is mostly unaltered, which merits the High SIO designation. Upgrades to the highway through this section are limited to widening the highway to allow for northbound and southbound passing lanes. The highway alignment will not be changed, and no additional features will be constructed. These upgrades will occur within the Transportation/Utility Corridor management area. As they will not change the character of the landscape, there will be no effect to the current SIO. Impacts to visual resources as a result of the Seward Highway 75 to 90 Project are expected to be minimal and in keeping with the scenery management goals of the Forest. 7.0 REFERENCES DOT&PF Central Region Annual Traffic Volume Report DOT&PF Seward Highway Corridor Partnership Plan. FHWA Seward Scenic Byway: Corridor Management Plan (SB-1996-AK-02). Accessed February 25, id= FHWA Visual Impact Assessment for Highway Projects. FHWA-HI USFS Revised Land and Resource Management Plan for the Chugach National Forest. USFS Landscape Aesthetics: A Handbook for Scenery Management. Draft April HDR Alaska, Inc.

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41 Memo Date: Monday, February 02, 2015 Project: To: Cc: From: Subject: Alaska Department of Transportation and Public Facilities (DOT&PF) Seward Highway Milepost (MP) 75 to 90 Road and Bridge Rehabilitation Project (AKSAS 58105) Kelly Petersen, DOT&PF Project Manager (PM) John McPherson, HDR PM HDR Visual Impact Assessment Addendum for the MP 88 Variant Purpose of this Addendum This memorandum is an addendum to the Report (April 2014) prepared for the Seward Highway Milepost (MP) 75 to 90 Road and Bridge Rehabilitation Project. Subsequent to that technical report, an alternate project feature known as the MP 88 Variant was proposed. The purpose of this addendum is to assess the visual impacts of the MP 88 Variant. Project Description The DOT&PF is seeking to address a number of identified safety problems, roadway deficiencies, and congestion along the Seward Highway between MP 75 and 90. The project would begin near Ingram Creek (MP 75) and end near Girdwood at the intersection of the Alyeska Highway (MP 90). Figure 1 depicts the project area. A single Proposed Action is under consideration, which would upgrade the existing 2-lane facility with the following components: Resurface the entire 15-mile highway corridor with asphalt; Construct auxiliary passing lanes in three locations throughout the 15-mile corridor (in total, approximately 3 miles of new northbound passing lanes and 5 miles of new southbound passing lanes); Realign the MP 88 horizontal and vertical curves; Realign the Portage curve, which would make at-grade improvements at the Portage Glacier Road intersection and improve recreation access in the vicinity; Construct two parking areas to access the area for hooligan dipnet fishing, including the construction of a 1.3-mile trail to connect the two parking areas; Improve existing driveways and recreation access; Replace eight bridges and rehabilitate one (at Ingram Creek); Where possible, reduce the required existing guardrail length; and Improve drainage by removing 10 culverts, replacing 15 culverts, and lengthening 1 existing culvert as necessary C Street, Suite 305, Anchorage, AK T hdrinc.com Page 1 of 23

42 Figure 1. Project Area 2525 C Street, Suite 305, Anchorage, AK T hdrinc.com Page 2 of 23

43 MP 88 Curve. The MP 88 curve was identified as a key safety concern because the existing horizontal and vertical curvature of the roadway does not meet the minimum design standards for this type of roadway. The DOT&PF is considering two highway alignment options at MP 88 to reduce its sharp curve. Figure 2 depicts the two options under consideration near MP 88. The first option at MP 88, considered the original base alignment under the Proposed Action, would involve moving the straight section of the highway leading into the curve toward Turnagain Arm. This option would reduce the sharpness of the curve by increasing the radius of the curve and making it broader. To make a gentler sweeping curve at this location requires moving the highway away from the railroad and bluff and slightly out into the Turnagain Arm mudflats, as depicted on Figure 2. The second variation, referred to as the MP 88 Variant, would flatten the curve and shift the highway alignment farther inland. This option would require moving the Alaska Railroad tracks farther inland and cutting into the hillside to create the necessary space for the shifted Alaska Railroad tracks. The Alaska Railroad track would be moved approximately 245 feet to the east (at the outside of the curve). Approximately 2,400 linear feet of track would be relocated and reconstructed. To make room for the relocated track and highway (with clear zones for safe operation of the highway and railroad), approximately 12 acres would be impacted. Not only does this option reduce the sharp curvature of both the highway and railroad tracks near MP 88, the impacted area proposed to be cleared and cut was also previously identified by DNR as a potential material source site. This option also reduces impacts to fill placement in Turnagain Arm as compared to the Proposed Action; see Figure 2. Rock cuts up to approximately 190 feet high would be required, and material removed to accommodate the track and highway realignments. The length of the rock cut would be approximately 2,400 feet long, paralleling the new realignment of the railroad track. It is anticipated that the cut material would be used for the project (for armor riprap along Turnagain Arm, for scour protection at bridge abutments, and/or crushed for roadway embankment). Figure 3 depicts a profile view at the middle of the proposed rock cut at MP 88. (See Appendix A for photo examples of existing rock cuts along the Seward Highway located north of the project area). The land ownership boundaries also would need to be redefined among the Alaska Railroad, DOT&PF, Alaska Department of Natural Resources (DNR), and the Municipality of Anchorage. Ongoing coordination has occurred and a concept plan has been approved by DOT&PF, DNR and the Alaska Railroad C Street, Suite 305, Anchorage, AK T hdrinc.com Page 3 of 23

44 Figure 2. Proposed Action at MP 88 and the MP 88 Variant 2525 C Street, Suite 305, Anchorage, AK T hdrinc.com Page 4 of 23

45 Figure 3. Profile of Excavated Rock Area per the MP 88 Variant Option 2525 C Street, Suite 305, Anchorage, AK T hdrinc.com Page 5 of 23

46 Regulatory Setting The Federal Highway Administration (FHWA) considers aesthetic values during project development. The Council on Environmental Quality s regulations for implementing National Environmental Policy Act (NEPA) (Section , Effects) also states that aesthetic effects should be considered. Assessment Method FHWA developed Visual Impact Assessment for Highway Projects in 1981 as a tool to help assess the visual impacts of highway projects in compliance with NEPA. The methodology described in the 1981 guidance is based on quantitatively assessing the scenery and visual resources of a project area. This comprehensive methodology is useful for predicting the degree of impacts to visual resources expected from new construction and for developing plans to mitigate those impacts. The FHWA guidance recognizes that upgrading an existing road typically has fewer and less significant impacts to visual resources than developing a new highway. For upgrade projects, a more versatile approach is recommended that is better suited for modifications to existing roads. The more versatile approach was selected and slightly modified for use in the original visual impacts assessment as well as in this addendum. The original report was prepared using methodologies from both FHWA and the U.S. Forest Service, as a substantial portion of the 15 miles of roadway is located within the Chugach National Forest (see Figure 1). Because the MP 88 Variant is located outside of the Chugach National Forest, the visual impacts assessment of the MP 88 Variant relied more heavily on FHWA s methodology (FHWA 1981). Visual impacts related to highway upgrades typically occur within the highway s existing viewshed. For this project, anticipated impacts within a viewshed were determined by selecting critical viewpoints (in the original visual impacts assessment, these were identified as Key Observation Points (KOPs), assessing the visual character and visual quality of the view from those viewpoints, and describing the changes to the view as a result of the proposed project. Viewshed For both the original and this Addendum, the central concept of the approach used for visual impacts analysis is called the viewshed. The viewshed is defined as all areas where physical changes associated with the proposed alternatives could be seen. The views can be looking outward from the Proposed Action or looking toward the project. For the original, the viewshed for the entire 15-mile project corridor is defined as the easternmost extent of Turnagain Arm bounded by the Chugach Mountains, including Girdwood Valley and the Twentymile River Valley to the north and east; the Kenai Mountains across Turnagain Arm, Portage Valley, and the Placer River Valley to the south; and Bird Point and Cook Inlet to the west. These boundaries define the viewshed, the area that can be seen from the Seward Highway MP 75 to 90. For this Visual Impact Assessment Addendum, the viewshed is defined as looking towards the MP 88 Variant. The views looking outward from the highway at MP 88 Variant location would remain virtually the same as disclosed under the Proposed Action s base alignment as disclosed in the original Visual Impacts Assessment C Street, Suite 305, Anchorage, AK T hdrinc.com Page 6 of 23

47 Key Observation Points For the original, following the identification of the overall project viewshed, eight KOPs were selected to represent different types of views, as shown on Figure 4. For this addendum, another KOP was added at MP 88. Figure 4. Key Observation Points Selected to Assess Visual Impacts For the original, representative photos of the views at each KOP were taken and the visual character of the landscape visible from each KOP was assessed. The following elements were considered for the foreground, middle ground, and background views: dominant features; ground cover (vegetation, waterbodies); line, color, and texture; and manmade developments. Anticipated impacts of the Proposed Action to the foreground (0 to ¼ mile), middle ground (¼ mile to 3 miles), and background (beyond 3 miles) views from each KOP were assessed. Refer to the Visual Impacts Assessment for this analysis C Street, Suite 305, Anchorage, AK T hdrinc.com Page 7 of 23

48 For this addendum, the existing foreground, middle and background views from MP 88 have been denoted and described in the next section. Visual Quality Visual quality is the qualitative assessment of the composition of the character-defining features of the landscape based on these three criteria: vividness, intactness, and unity (FHWA 1981). These criteria are defined as follows: Vividness is the distinctness of a key view, including it being clearly perceptible. Intactness refers to an untouched or unaltered landscape. Unity is defined as a landscape with a quality or state of being made whole or a coherent, harmonious visual pattern. It frequently attests to the careful design of individual components in the landscape. Assessment of the MP 88 Variant The FHWA methodology examines the character and quality of the visual resources as well as the viewer s perception of the area. Understanding the change in the visual quality and aesthetics is important for determining if there will be a visual change as a result of the proposed project. Assessing visual quality and aesthetics has been done by determining: The experience of the primary observers Views that can be seen from the roadway The overall visual and aesthetic quality of the area If/how the proposed project (MP 88 Variant) will change the area from the existing conditions Viewers The primary observers and users in Turnagain Arm are the highway user, the recreational user, and a limited number of local residents. Existing Views at MP 88 The aesthetic quality of a community or area depends on its visual resources the physical features that make up the visible landscape, which include land, water, vegetation, and human-made features such as buildings, roads, and other structures. The visible landscape views from the foreground, middleground, and background at the MP 88 Variant location looking outward are described below and further depicted on Figure 5 and Figure 6. (Note: images are from GoogleEarth, dated 2011). Photos looking towards the MP 88 Variant location (from both northbound and southbound), with a depiction of the impacted area to be excavated, are contained in Figure 7. The foreground view is characterized by the long curve ( MP 88 curve ) of the Seward Highway; the Turnagain Arm waters and mudflats to the west, south, and southeast; and the railroad embankment paralleling the highway at a slightly higher elevation to the northeast. The area immediately beyond the railroad tracks to the northeast is comprised of an unvegetated rock cliff face with shrubby vegetation and areas of large spruce trees on either side and above. A small (0.3-acre), vegetated, rocky point extending into the inlet is located near the sharpest point of the highway curve. The vegetation classification for this small point is closed tall alder shrub; mature spruce and hemlock are also present C Street, Suite 305, Anchorage, AK T hdrinc.com Page 8 of 23

49 The middleground view is characterized by the highway extending northbound before curving out of the viewshed as it heads towards the junction of the Alyeska Highway and turnoff for the Girdwood valley. From near the sharpest point of the curve, looking northbound along the highway, a large freshwater pond can be seen to the northeast, located between the highway and railroad. A ridgeline of the Chugach Mountains can be viewed farther in the distance towards the end of the middleground view. The area located to the northeast of MP 88 is also heavily forested with spruce. The Kenai Mountains are visible across Turnagain Arm to the south. Two highway pullouts, one on each side of the highway, are located about 1/3 of a mile southeast from the sharpest point of the MP 88 curve. However, these pullouts are not easily viewed from the MP 88 curve due to the vegetation and tree cover near the pullouts. While not visible from the sharpest point of the curve, power lines generally paralleling the highway and railroad tracks; at this location, the power lines are on the northeastern side of the highway and railroad, beyond the forested area. The background view (beyond 3 miles) from the MP 88 Variant looking north is located beyond the extent of the end of the project area boundary; the project area boundary ends two miles north of the MP 88 curve. The Seward Highway curves back into view from the Alyeska Highway junction at the base of the Penguin Ridgeline of the Chugach Mountain range. However, given the distance, the highway and parallel power lines are barely visible. Nearly six miles to the northwest from the MP 88 Variant viewpoint, two rock cuts into the mountain slopes are also barely visible along the highway. Looking southbound, the southeast view consists of the Turnagain Arm framed by mountains. Figure 5. Aerial view of the Key Observation Point (KOP) at MP C Street, Suite 305, Anchorage, AK T hdrinc.com Page 9 of 23

50 Figure 6. Existing views looking outward from the MP 88 curve View (A) from MP 88 Curve, looking southbound along the Seward Highway View (B) from MP 88 Curve, looking northwest and northbound along the Seward Highway 2525 C Street, Suite 305, Anchorage, AK T hdrinc.com Page 10 of 23

51 View (C) from MP 88 Curve, looking west towards Turnagain Arm waters and Bird Point View (D) from MP 88 Curve, looking southeast towards the end of Turnagain Arm 2525 C Street, Suite 305, Anchorage, AK T hdrinc.com Page 11 of 23

52 Visual Quality and Previous Planning Documents The Seward Highway, including MP 75 to 90, has long been recognized for its scenic qualities: the Federal Highway Administration (FHWA) officially named the Seward Highway corridor an All-American Road; the USFS has called designated it a National Forest Scenic Byway; and DOT&PF has called designated it an Alaska State Scenic Byway. These recognitions emphasize the importance and value of the visual resources of the corridor and serve to encourage consideration of impacts to visual aesthetics as the corridor and surrounding communities develop. The Seward Highway was designated as a National Scenic Byway in 1998 and upgraded to an All- American Road in 2000 on the grounds that it has recreational and scenic qualities. 1 Inclusion within the National Scenic Byway Program recognizes that the Seward Highway possesses unique characteristics that do not occur anywhere else in the country and is a tourist destination unto itself. Existing documents for public lands in the study area illustrate the degree of sensitivity concerning the aesthetic character of this highway, especially along Turnagain Arm. Two of these plans are summarized below. The Seward Highway Corridor Partnership Plan prepared by DOT&PF in 1998 presents an evaluation of the highway corridor s aesthetic features that were necessary to qualify it for National Scenic Byway designation. The plan calls out that the Seward Highway offers one stunning view after another. The plan also recognizes that highway safety is of paramount importance when considering the management of the route as an All-American Road. Highway safety and aesthetic sensibility, however, need not be mutually exclusive. The plan identifies three keystone strategies for successfully managing the Seward Highway: Provide a safe, aesthetic, and world-class driving experience Manage visitors effectively Avoid haphazard development. The 1998 Seward Highway Corridor Partnership Plan also details the importance of both maintaining visual resources and achieving safety along the highway. View Management. It cannot be denied, or stressed enough, that the Seward Highway offers one stunning view after another. The Seward Highway is a unique national scenic resource views and viewsheds are critical to the success of this Corridor Partnership Plan. (page 40) Safety Considerations. Highway safety is of paramount importance when considering the management of the route as an All-American Road. Highway safety and aesthetic sensibility, however, need not be mutually exclusive. (page 41) The 1994 Turnagain Arm Management Plan, developed by the DNR, directs how state lands are to be managed. While most of the project area goes through USFS lands, state land is located in the MP 88 vicinity (see Figure 1). The MP 88 Variant location occurs within a specific subunit (5f) identified in this plan, which is called out as a potential material source site. Subunit 5f is described as a 197 acre parcel 1 To qualify as a National Scenic Byway, a road must possess one of six intrinsic qualities: archaeological, cultural, historic, natural, recreational, or scenic. To qualify as an All-American Road, a road must possess at least two of the six qualities C Street, Suite 305, Anchorage, AK T hdrinc.com Page 12 of 23

53 adjacent to the Seward Highway near Kern Creek; portions of the parcel have already been used for material extraction. The plan describes Subunit 5f as follows: This subunit is highly visible from much of the Seward Highway Scenic Corridor. Therefore other alternative material sources should be considered before utilizing this subunit. If a comparable material source is found and made available to DOT&PF, then this subunit should be dropped as a materials source. If this subunit is to be used for materials extraction, every effort should be made to screen the activity from the highway corridor to the extent possible. (page 3-31) Visual Quality at MP 88 The overall existing visual quality at MP 88 Variant is high, as one would expect along a National Scenic Byway that is recognized for its scenic, natural, historic, and recreational values. The natural landscape views consist of mountain ridgelines, peaks and rock faces coupled with the Turnagain Arm waters and mudflats. The views also consist of human-made elements associated with the highway, railroad, and power lines. (Note: generally speaking, the greater the presence of manmade development and encroachments within a view, the lower the unity and intactness of the view, resulting in lower overall visual quality). The vividness of most of the views in the MP 75 to 90 viewshed, including at MP 88, is considered high because the views of the mountains and Turnagain Arm waters are memorable, striking, and distinctive in pattern. Intactness is considered moderate to high because manmade elements associated with the highway, railroad, and power lines persist throughout the entire MP 75 to 90 corridor, including at MP 88. Manmade elements can be seen or are present in the foreground (highway, railroad tracks), in the middle ground (highway, railroad tracks, and power lines and power line utility corridor), and in the background views (highway, railroad tracks, power lines, power line utility corridor, and other rock cuts). While humanmade elements do occur, they are linear and tend to parallel the existing shoreline and thus to blend into the surrounding character. They don t substantially create a visual discontinuity between the natural and human-made elements. (Note: a high rating would mean the landscape is free from visual encroachment, and low means that it is not, with moderate in the middle. Intactness considers the visual integrity between the natural and human-made landscape and the extent that it is free from visual encroachments). At the MP 88 Variant, unity is scored as high. The visual coherence and compositional harmony of the landscape considered as a whole is high. A high unity attests to the careful design of individual components in the artificial landscape. The built environment and natural elements tend to blend together at MP 88. Visual Change The FHWA guidelines define visual impact as the change in the visual resource caused by the project and the response to that change by the viewer. The visual character of the landscape visible from the 8 original KOPs relative to the MP 88 Variant was assessed using Google Earth images. It is unlikely the new highway cut at MP 88 would be visible on the mountain slope from the 8 identified KOPs, except for possibly from the KOP 8 at Bird Point, which is located 8 miles to the north (and outside of the project area). The cut probably would not be seen due either to vegetation or obstruction from other natural land features. At a distance this far, it is possible the 2525 C Street, Suite 305, Anchorage, AK T hdrinc.com Page 13 of 23

54 analysis of the viewshed becomes unnecessary because of the great distance and apparent reduced size of the cut, based on scientific perspective. 2 The approximate area to be removed at MP 88 is graphically depicted in the triangular areas drawn onto Google Earth images (dated 2011) in Figure 7 and Figure 8. The approximate area to be removed at MP 88 is graphically depicted in the white triangular areas drawn onto these images. The yellow circle shown in two of the images represents the first visual sighting of MP 88 from the southern extent of the project area. From the south looking northbound, the existing land feature at MP 88 begins to come into view near approximately MP 82.5, as depicted in Figure 7. From the north looking southbound, the MP 88 location comes into view at about MP 88.6, as depicted in Figure 8. Figure 7. Viewpoints Looking Northbound Towards the MP 88 Variant View from approx. MP 82.5, MP 88 barely coming into view 2 What is scientific perspective? Scientific, linear, or size perspective is the reduction in the apparent size of objects as the distance from the observer increases. An object appears smaller and smaller as an observer moves farther and farther from it. At some distance, depending on the size and degree of contrast between the object and its surroundings, the object might not be a point of interest for most people. At this hypothetical distance, it can be argued that the object has little effect on the composition of the landscape of which it is a tiny part. Eventually, at even greater distances, the human eye is incapable of seeing the object at all (New York State Department of Environmental Conservation, 2000) C Street, Suite 305, Anchorage, AK T hdrinc.com Page 14 of 23

55 View from approx. MP 85 View from Kern Creek MP 86.3, looking northbound 2525 C Street, Suite 305, Anchorage, AK T hdrinc.com Page 15 of 23

56 View from approx. MP 87, looking northbound Figure 8. Viewpoints Looking Southbound Towards the MP 88 Variant View from approx. MP 88.6; Area to be removed barely coming into view 2525 C Street, Suite 305, Anchorage, AK T hdrinc.com Page 16 of 23

57 View from approx. MP 88.5 Impacts are defined relative to the existing views along an alternative. High impact means that the alternative would entirely block the existing views or would be substantially out of character with the rest of the view. Low impact means that the existing views would not be blocked and that the change would not be substantially out of character. Given these definitions, it is possible to have a high impact to a lowquality existing view or a low impact to a high-quality existing view. Compared to the base alignment under the Proposed Action at MP 88, the MP 88 Variant would have a greater visual impact. While implementing the MP 88 Variant option would not obstruct scenic vistas, the MP 88 Variant would remove approximately 10 acres of vegetation mostly classified as open Sitka spruce forest and 1 acre of open tall willow scrub. Removing vegetation to extract underlying rock material or to straighten the Seward Highway along Turnagain Arm is not uncharacteristic of this highway. There are several locations along the Seward Highway where similar cuts have previously occurred (see Appendix A), meaning this particular cut would not be out of character or unusual with respect to the overall corridor. The foreground views that are characteristic for travelers along the highway include views of forest, mountain, and open water along with the highway, railroad tracks, and power lines, and these views would not materially change. The viewshed for which the corridor has been designated (hanging glaciers, mountains and their steep rocky slopes, marine waters, wildlife sighting opportunities, recreation access) would not be obscured, and the rock cut would not be visible from identified KOPs. For travelers along the highway, the cut face would be parallel to the direction of travel and would therefore not be as evident in the viewshed. As discussed previously, the length of the proposed rock cut at MP 88 would be approximately 2,400 feet long and up to 190 feet high. The rock cut would run generally parallel with the new realignment of the 2525 C Street, Suite 305, Anchorage, AK T hdrinc.com Page 17 of 23

58 railroad track and highway. This would lessen the amount of viewer exposure and the viewer s sensitivity to the rock cut may not be as high as compared to the rock cut not occurring relatively parallel to the highway user. Viewers would pass along the MP 88 cut at relatively high speeds so the duration of the viewer s exposure in the immediate foreground would be somewhat low. However, the rock cut would be quite evident to those traveling in its immediate vicinity. Finally, the site proposed for excavation has been designated as a material source by DNR for use in constructing the Seward Highway since the 1960s; a designation that predates the adoption of the plans that led to the scenic byway designations. It s important to mention that while the MP 88 location has been previously designated a material source site for use in constructing the Seward Highway, one of the key safety needs identified for the project is to enhance safety for the traveling public by reducing the highway curve, which is one of the sharpest curves along the highway in the project corridor. Under the MP 88 Variant, the construction of the highway and railroad realignment in addition to approximately 10 acres of rock material and vegetation removal would result in both short-term and longterm modifications to the visual character of the project area. While the visual quality would be affected more by the MP 88 Variant than the MP 88 option under the Proposed Action, the impacts are not anticipated to be significant; the impacts are characteristic to other views of rock cuts along the highway corridor. References Alaska DNR, Division of Land. October Turnagain Arm Management Plan for State Lands. Alaska DOT&PF Seward Highway Corridor Partnership Plan. Prepared for DOT&PF by the National Trust for Historic Preservation Rural Heritage and Heritage Tourism Programs with Whiteman and Taintor. Federal Highway Administration (FHWA). March Visual Impact Assessment for Highway Projects. FHWA-HI New York State Department of Environmental Conservation (DEC) DEC Policy System Assessing and Mitigating Visual Impacts. July Accessed at: C Street, Suite 305, Anchorage, AK T hdrinc.com Page 18 of 23

59 APPENDIX A. Other Rock Cut Examples along the Seward Highway There are several other locations along the Seward Highway that have been excavated for rock material and/or to accommodate a highway and/or railroad realignment, as depicted in the following figure and photos. The approximate length of these existing rock cuts are provided below, however the heights have not been measured and included. As reference, the proposed rock cut length at MP 88 is approximately 2,400 feet. The first location is near Bird Creek, at approximate MP The length of the rock cut is approximately feet. The excavated area was turned into a parking lot to provide access to adjacent recreation opportunities such as Bird Ridge and the popular recreational fishery at Bird Creek. Examples 2 and 3 are located east of Bird Point (MP 96.6), southbound along the highway. The first rock cut (example 2) is approximately 1,200 feet long. The second rock cut to the south of Bird Point (example 3) is actually two separated by about 600 feet of existing vegetation; the length of these two rock cuts are approximately 2,400 feet and 1,500-1,600 feet. Figure A. Other Examples of Rock Cuts along the Seward Highway 2525 C Street, Suite 305, Anchorage, AK T hdrinc.com Page 19 of 23

60 C Street, Suite 305, Anchorage, AK T hdrinc.com Page 20 of 23

61 C Street, Suite 305, Anchorage, AK T hdrinc.com Page 21 of 23

62 C Street, Suite 305, Anchorage, AK T hdrinc.com Page 22 of 23

63 C Street, Suite 305, Anchorage, AK T hdrinc.com Page 23 of 23