SR28 National Scenic Byway Corridor Management Plan (CMP).pdf

State Route 28 National Scenic Byway Corridor Management Plan

October 4, 2013 Beaut iful DriveAmerica’s Most

America’s Most Beaut iful Drive

State Route 28 National Scenic Byway Corridor Management Plan

America's Most Beautiful Drive

Adopted by Tahoe Transportation District October 4, 2013

Prepared For:

Tahoe Transportation District

Tahoe Regional Planning Agency Nevada Division of State Parks

U.S. Forest Service Lake Tahoe Basin Management Unit Nevada Department of Transportation

Nevada Highway Patrol Federal Highway Administration

Washoe County Carson City

Douglas County Nevada Division of State Lands

Incline Village General Improvement District Washoe Tribe

Prepared By:

Design Workshop

128 Market Street, Suite 3E PO Box 5666

Stateline, NV 89449

Karen Mullen-Ehly 16919 Mt. Rose Hwy

Reno, NV 89511

LSC Transportation Consultants

2690 Lake Forest Road PO Box 5875

Tahoe City, CA 96145

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Contents CORRIDOR MANAGEMENT PLAN OVERVIEW................................................................................... iii

EXECUTIVE SUMMARY.......................................................................................................................... x

CHAPTER ONE: VALUE OF THE PLAN������������������������������������������������������������������������������������������������� 1

Value of the Plan ������������������������������������������������������������������������������������������������������������������������������ 2

Public Engagement

CHAPTER TWO: PLAN ORGANIZATION��������������������������������������������������������������������������������������������� 23

Looking at the Corridor Differently

CHAPTER THREE: PAST & CURRENT PROJECTS

Coordination with Past & Current Studies

Coordinating Projects

CHAPTER FOUR: CORRIDOR CONTEXT & ANALYSIS

Introduction

Public Safety

Highway Operations

User Experience & Aesthetics

Natural Resources

CHAPTER FIVE: PLAN ELEMENTS SUMMARY

Focus of Plan Recommendations

East Shore Recreation Area Access

Recommended Corridor Approach

List of Recommended Projects

CHAPTER SIX: PUBLIC SAFETY RECOMMENDATIONS

Public Safety Recommendations

CHAPTER SEVEN: HIGHWAY OPERATIONS RECOMMENDATIONS

Highway Operations Recommendations

CHAPTER EIGHT: ALTERNATIVE TRANSPORTATION SYSTEMS

Alternative Transportation Systems Recommendations

CHAPTER NINE: USER EXPERIENCE & AESTHETICS RECOMMENDATIONS

User Experience & Aesthetics Recommendations

Enhanced Standards of Treatment

CHAPTER TEN: INTEGRATION OF RESOURCE MANAGEMENT RECOMMENDATIONS

Integration of Resource Management Recommendations

CHAPTER ELEVEN: IMPLEMENTATION, MONITORING, MANAGEMENT & OUTREACH

Implementation and Funding

Management

Economic Vitality Connection

Current Funding Submittals

Monitoring/Metrics

Outreach for Action: In Touch With Outreach

REFERENCES

SR 28 Corridor Management Planii |

APPENDICES

Project List: Project Partners Matrix. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . A-1

Project List: Funding Opportunities Matrix . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . B-1

Monitoring Program Tracking Sheet. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . C-1

Public Engagement Summary. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . D-1

Project Charter. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . E-1

Previous Studies Gap Analysis. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . F-1

Vehicle Accident Maps. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . G-1

Shoulder Parking Area Diagrams . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . H-1

Beach Use Area Diagrams. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I-1

Recent Parking Counts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . J-1

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2.6 million+ vehicles impact Tahoe’s longest undeveloped shoreline.

SR 28 CORRIDOR MANAGEMENT PLAN OVERVIEW

Eleven miles of undeveloped shoreline, the longest stretch at Lake Tahoe, parallels Nevada State Route (SR) 28 south of

Lakeshore Drive in Incline Village. This two-lane, mountainside road is the only access route for over one million recreating visitors and 2.6 million-plus vehicles per year.

And its popularity is growing. But the area’s sensitive resources suffer due to a lack of coordinated solutions for safer, adequate access to a variety of recreation experiences. Until now...

In an unprecedented response to the safety and environmental concerns, the Tahoe Transportation District (TTD) partnered with 12 agencies to develop a Corridor Management Plan (CMP) for SR 28. While recognizing individual jurisdictions, it creates a platform for effective collaboration to protect and enhance this section of “America’s Most Beautiful Drive.”

Unparalleled popularity, unprecedented collaboration.

“A safer, multi-modal and pedestrian-friendly SR 28 corridor can only be achieved by agencies working together.”

Carl Hasty, District Manager, Tahoe Transportation District[ ]

SR 28 Corridor Management Planiv |

Challenges Recreation demand is double the existing parking capacity (1,175 vehicles looking for parking at the overall peak time and only 582 paved spaces). This results in a multitude of challenges. Perhaps the biggest is “shoulder-parking.”

The areas are narrow, often at the edge of steep inclines with limited sight distance. Safety and erosion are important concerns. The number of vehicles parked along the shoulder has grown every year – almost 170% between 2000 and 2011 – and is projected to double by 2038.

Safety is critical as the fatality trend increased from 2006-2013 in contrast to the statewide average that decreased about 50% per NDOT. Pedestrians (nearly 2,000 at peak overall demand) are forced to walk in travel lanes. Vehicles pull off and on. Traffic slows and becomes congested as vehicles, trying to enter Sand Harbor’s typically full lot, back up for almost a mile.

Rugged terrain limits options for off-highway parking.

Shoulder-parking causes erosion and sediment run-off.Safety issues and “social trails” result from shoulder-parking.

1,175 VS. 582

vehicles paved spaces

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Opportunities

The plan connects Corridor challenges with opportunities that can be grouped into five primary and inter-related benefits. To address these opportunities and realize the benefits, project partners identified their agencies’ strengths and highlighted potential collaboration.

Congestion at Sand Harbor hinders emergency vehicle access.

170% increase in shoulder parking August 2000 to August 2011.

Protect the

Lake.

Reduce erosion with appropriate parking, trails and access.

Ensure water quality by reducing fine sediments that reach the lake.

Improve safety.

Design for fewer accidents, zero fatalities. Provide safer pedestrian, bicyclist and motorist choices.

Construct emergency turnouts and viewpoints.

Promote economic vitality.

Manage capacity at current levels.

Enhance recreation alternatives.

Promote value to future generations.

Encourage riding transit, bicycling and walking. Connect off-highway parking to transit. Construct a “wikeable” (walking/biking) shared-use path.

Expand transportation choices

Enhance the visitor experience.

Encourage collaboration. Establish public/private partnerships. Reduce resource impacts.

Chaos vs. management. The only option here is to manage the SR 28 Corridor for safe driving and access to the lake. It’s what Tahoe visitors and residents deserve.

Randy Jackson, Sergeant Nevada Highway Patrol, Incline Village/Lake Tahoe[ ]

Rarely do federal, state and local agencies tackle issues together. The East Shore is a national treasure, however, that we must protect, even while providing safe, recreational access.

Dave Morrow, Administrator Nevada Division of State Parks[ ]

SR 28 Corridor Management Planvi |

LAKE TAHOE

Sand Harbor

Skunk Harbor

Spooner Lake

Marlette Lake

Bliss Pond

Hidden Beach

Rocky Point

Secret Harbor

Chimney Beach

Thunderbird Lodge

CARSON CITY

WASHOE COUNTY

CARSON CITY

DOUGLAS COUNTY

Incline Village (Existing visitor center)

Implement pedestrian crossing improvements in Incline Village per NDOT Road Safety Audit

Future Transit Connection from Reno

Existing Transit Connection from North Shore

SR 28 Corridor Management Plan Recommendations

Crystal Bay

Rim Trail

Flum e Trail

Memorial Point

Kings Beach

NE

VA

DA

CA

LI

FO

RN

IA

VC

Existing Transit Connection from Carson

Existing Transit Connection from South Shore

VC

(Existing visitor center)

VC

LEGEND

Park-n-Ride Transit Stop Transit Stop Potential Future Transit Stop to Consider Existing Off-Highway Parking

New Visitor Center (Existing Visitor Centers are Noted)

Expanded Off-Highway Parking New Off-Highway Parking Formalized Off-Highway Parking Emergency/Maintenance Turnout Stateline-to-Stateline Bikeway Corridor Gateway Signs Existing Gateway Signs New Viewpoint

Existing Viewpoint

VC

N

Lake Tahoe

N

Ca lif or ni a

N ev ad a

Scenic Byway

Sand Harbor

Incline Village

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Recommendations

One of the CMP’s overall goals is to provide all users a Corridor that reflects its National Scenic Byway status.

The conceptual drawings and photographs on these pages depict the quality of some of the plan’s solutions.

New or expanded off-highway or park-n-ride lots will relocate shoulder-parking to safe sites. Emergency turnouts will help reduce Corridor congestion. Designated viewpoints with 20-minute parking will also ease vehicle congestion and improve safety. Pedestrians will benefit from implementation of Road Safety/Audit improvements to make Incline Village pedestrian crossings safer.

Transit service will add transportation choices, helping to manage access within capacity. The “wikeable” (walking/ biking) Nevada Stateline-to-Stateline Bikeway will connect trailheads to recreation, while clearly defined trail systems allow restoration of over four miles of user-created trails.

Conceptual illustration of expanded parking at the Secret Harbor Trailhead.

Conceptual illustration of the Bikeway, integrated with clearly defined trails to reduce erosion and provide safe access.

With a contextual rim to lake approach, the partnering agencies can integrate multi-modal transportation choices to enhance the visitor experience and protect the environment.

Nancy J. Gibson, Forest Supervisor USFS Lake Tahoe Basin Management Unit[ ]

Concept of transit service, like the East Shore Express, to manage access and ensure a quality visitor experience.

Conceptual illustration of a viewpoint along the Bikeway to enhance the bicyclist and pedestrian experience.

emergency pullouts plus 12 viewpoints increasing safety, reducing congestion

SR 28 Corridor Management Planviii |

Partnering to improve the safety, traffic flow and aesthetics along the Corridor will result in a true National Scenic Byway that is also a model for other roadways around the lake.

Rudy Malfabon, P.E., Director Nevada Department of Transportation[ ]

Implementation

Success means protecting Lake Tahoe while providing safe, recreational access.

CHAPTER 5: Plan Recommendations Summary | 87

North Corridor Trailheads

Note: Illustrations and diagrams are conceptual in nature. Final design and engineering may vary.

Existing area to be formalized.Conceptual diagram of potential 24 spaces south of Lakeshore Drive at North Corridor Trailhead B. Uncontrolled parking would be eliminated as the "No Parking Zone" is expanded and parking allowed in designated areas only.

Conceptual illustration of potential North Corridor Trailhead B.

Formalized Parking

Corridor Gateway

Right-of-way Line

Residence

Residence

Residence

SR

SR 28 Corridor Management Plan132 | CHAPTER 9: User Experience & Aesthetics

Gateways:

• Incorporate large boulders and/or granite

• Consider the use of rough hewn timbers

• Coordinate stone with materials used for corridor walls

• Incorporate the message “America’s Most Beautiful Drive”

• Locate at Corridor entries and in locations feasible for motorists to safely pull-off the highway and take photographs

• Develop Corridor icon/logo

• Incorporate icon/ logo as part of gateway and other corridor elements

• Reinforce a Corridor brand or image with the gateway

• Design gateway to fit into the overall landscape view and be appropriate for the surrounding setting

Conceptual illustration of potential gateway entry sign. (Actual design to be further developed.)

Conceptual illustration of potential viewpoint incorporating a logo element.

(Actual design to be further developed.)

Gateways should use stone and wood appropriate to the Tahoe area.

The CMP proposes improving the visual environment for a “national park” quality.

Concept of viewpoints that allow scenic-drivers to safely park without leaving vehicles unattended.

Based on the 13 partners’ strengths, jurisdictions and interests, the CMP proposes a framework for project funding, planning, construction, maintenance and evaluation, as well as long-term collaboration.

Success can be measured by completing projects with the overall goals of creating safe parking alternatives, improving aesthetics, enhancing the visitor experience and safeguarding the undeveloped shoreline.

Technology

60+% of outdoor recreationalists, ages 18-44, use technology to plan. This growing trend can enhance the visitor experience along the SR 28 Corridor.

Through the Internet, social media and mobile apps, we can distribute information about the different beach experiences, types of trail access, hiking/ biking trails, etc. We can also broadcast timely updates on parking availability, transit options and alternate locations.

Continuous data capture will allow us to manage/ maintain visitor levels as well, by monitoring transit use and capping available parking at park-n-ride lots.

Information

Please visit our website for more information:

www.tahoetransportation.org

We welcome your input. Please contact:

Tahoe Transportation District Derek Kirkland 775.589.5504 128 Market Street, Suite 3F Stateline, NV 89449 dkirkland@tahoetransportation.org

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Commitment To jointly address shared issues, the TTD and its 12 partners have created a remarkable implementation mechanism: the SR 28 Corridor Management Plan. We thank the public for thoughtful comments and for supporting our commitment to protect the lake, improve safety, enhance recreation with transportation choices and benefit local/regional economies.

We, the undersigned, look forward to continued collaboration with the community as well as with each other:

13agencies, one effort

Tahoe Transportation District

Carl Hasty, District Manager

Federal Highway Administration

Sue Klekar, Division Administrator

Nevada Department of Transportation

Rudy Malfabon, P.E., Director

Nevada Highway Patrol

Sergeant Randy Jackson Incline Village/Lake Tahoe

Carson City Regional Transportation Commission

John McKenna, Chair

County of Washoe

John Berkich, Interim County Manager

Washoe Tribe of Nevada and California

Darrel Cruz, Washoe Cultural Resource Department-Director, Tribal Historic Preservation Officer

Tahoe Regional Planning Agency

Joanne Marchetta, Executive Director

Tim Carlson, Presidential Appointee

U.S. Forest Service

Nancy J. Gibson, Forest Supervisor Lake Tahoe Basin Management Unit

Nevada Division of State Parks

Dave Morrow, Administrator

State of Nevada, Division of State Lands

James R. Lawrence, Administrator and State Land Registrar

County of Douglas

Steve Mokrohisky, County Manager

Incline Village General Improvement District

William B. Horn, General Manager

SR 28 Corridor Management Planx |

Executive Summary

In response to concerns about the numerous pedestrian and traffic challenges along Nevada State Route (SR) 28, the Tahoe Transportation District (TTD) partnered with 12 agencies (the Plan Partners) to develop a Corridor Manage-ment Plan for the National Scenic Byway referred to as "America's Most Beautiful

Drive", the longest stretch of undeveloped shoreline at Lake Tahoe.

The Corridor Management Plan (CMP) includes the contextual area (from rim to lake) of SR 28 from Crystal Bay to the U.S. 50 intersection. This contextual plan-ning approach does not supersede individual jurisdictions’ management plans, but allows for a coordinated approach and understanding of projects and efforts.

The majority of issues facing the Corridor are associated with shoulder parking and recreation access from SR 28 and the visitor experience. Recommendations focus on addressing issues in the east shore recreation area south of Lakeshore

Boulevard to the U.S. 50 intersection.

The CMP envisions a safe Corridor with parking in designated, off-highway lots that are interconnected by a system of trails and separated shared-use path. It describes recommendations to allow Corridor users the ability to explore the sce-nic Corridor, from rim to lake, with fewer cars, less noise, and easier access.

The Plan recognizes the unique role, mission, and goals of individual agencies while providing a platform for a coordinated approach to facilitate agency collabo-rations so they may operate more effectively and efficiently within the Corridor.

Purpose & Need

Purpose The purpose of the SR 28 National Scenic Corridor Management Plan is to ad-dress the Corridor’s safety, transportation, environmental, recreation, scenic, and economic needs in a coordinated manner.

Need The need stems primarily from the Corridor's high recreation demand and limited areas of safe, off-highway parking to meet that demand. SR 28 is perhaps one of the most photographed areas of the region, showcasing Lake Tahoe’s clarity with its crystal blue waters and unique boulder outcroppings. It hosts over one million visitors recreating annually (State Parks, 2011) who come to enjoy the beaches, coves, and trails. Additionally, fatality trends increased from 2004-2011 in contrast to the statewide average that decreased about 50% per NDOT.

To protect this area and allow its continued use for sustainable recreation, it is necessary to address the impacts of user activity on the multi-modal transpor-tation systems as well as the impacts of transportation systems on this area's unique natural resources and the recreational experience.

The Plan recognizes the unique role of individual agencies, their missions and their goals while providing a platform for a coordinated approach to assist agencies in developing future collaborations so they may operate more effectively and efficiently within the

Corridor.

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A plan is needed that engages all jurisdictions operating in the Corridor, evalu-ates shared issues, coordinates planning and construction projects and monitors impacts to ensure overall Corridor needs are met, goals are attained, and funding sources leveraged, leading to the successful completion of complex projects in the Tahoe Basin while providing for long term maintenance and operations.

Challenges There are 2.6 million vehicles using the Corridor annually (based on NDOT traffic counts from http://www.nevadadot.com/About_NDOT/NDOT_Divisions/Plan-ning/Traffic/Annual_Traffic_Reports.aspx), of which, many are taking the popular scenic drive around Lake Tahoe. The narrow, winding highway presents many challenges which are discussed in detail in Chapter 4.

• The number of vehicles parked along the shoulder has grown every year – almost 170% between 2000 and 2011 – and is projected to double by 2038.

• The demand for parking is double the existing safe, off-highway parking ca-pacity (1,175 vehicles at overall peak demand and only 582 available spaces).

• The majority of off-highway parking serves Sand Harbor (530 spaces), with only 52 spaces for the rest of the Corridor.

• Vehicles are parked along narrow shoulders, at the edge of steep slopes, and in areas of limited sight distance.

• Pedestrians are forced to walk in travel lanes with children, dogs, coolers, chairs, and other recreation gear as they make their way to their destination.

• In 2011 at the hour of peak overall parking demand, surveyors counted 593 cars parked along the roadway shoulder – equating to almost 2,000 people walking along the roadway in heavy traffic (LSC, September 8, 2011).

• The east shore has an overall crash rate of 1.33 per million vehicle miles com-pared to the average two lane rural Nevada Highway at 0.96. Fatalities have also been on a rise from 2006 to 2013, which is opposite the statewide trend for the same time period.

• Cars are parked over the fog line and vehicle accidents occur as cars stop abruptly to park along the shoulder and make U-turns across the highway to secure a parking spot.

• Traffic slows and becomes congested as vehicles try to negotiate around shoulder-parked cars or try to enter Sand Harbor's typically full lot that backs up traffic for almost a mile.

• Traffic hinders the movement of emergency vehicles.

• Pedestrians jump over guardrails to make their way from the road shoulder to the beaches.

• Users create unauthorized trails as they cut across the hillsides from their shoulder-parked cars, causing erosion and impacting lake clarity and quality.

• There is a lack of room for bicyclists using the Corridor.

• Preliminary evaluation of visitor use levels supports discussions with land managers that east shore beaches are close to or at capacity. Water level is an important factor in available beach space.

• The type of visitor experience varies for the recreation sites. There is a desire to maintain the high quality and different types of experiences. Visitor use should not be significantly shifted from one site to the next.

The need stems primarily from the Corridor's high recreation demand and limited areas of safe, off-highway parking to meet that demand.

The majority of issues facing the Corridor are associated with shoulder parking and recreation access from SR 28 and maintaining the visitor experience.

Recommendations focus on addressing issues in the east shore recreation area.

SR 28 Corridor Management Planxii |

• The number of differing agencies and governing bodies with Corridor jurisdic-tion creates a need for continued collaboration to address shared issues and overcome procedural hurdles.

Goals The Plan Partners; along with Design Workshop, Karen Mullen-Ehly, and LSC

Transportation Consultants; evaluated the issues and input from public and stake-holder comments to develop a strategy of connecting Corridor challenges with opportunities that then can be grouped according to their inter-related benefits.

• Improve Safety.

-- Design for fewer accidents, zero fatalities.

-- Provide safer pedestrian, bicyclist, and motorist choices.

-- Construct emergency turnouts and viewpoints to improve traffic flow.

• Protect Lake Tahoe.

-- Reduce erosion with appropriate parking, trails, and access.

-- Ensure water quality by reducing fine sediments that reach Lake Tahoe.

• Enhance the visitor experience.

-- Manage capacity at appropriate levels.

-- Enhance recreation alternatives.

-- Promote value to future generations.

• Expand multi-modal transportation choices.

-- Encourage riding transit, bicycling, and walking.

-- Connect off-highway parking to transit.

-- Construct a walking/biking shared-use path.

• Promote economic vitality.

-- Encourage collaboration.

-- Establish public/private partnerships.

-- Reduce resource impacts.

Corridor Management Structure The CMP requires implementing projects and managing the Corridor across jurisdictional boundaries while recognizing each agency’s mission and goals. The

CMP is organized with this goal in mind. Five management categories create the framework for implementation, management, and maintenance.

• Public Safety

• Highway Operations

• Alternative Transportation Systems

• User Experience & Aesthetics

• Integration of Resource Management

The CMP is a living document that focuses on identifying opportunities for partnerships and collaborations among agencies to complete projects and fund implementation and maintenance. It is likely that new opportunities and chal-lenges will arise that alter strategies to achieve Corridor goals. As circumstances change, Plan Partners should modify the project list and adjust recommended action items accordingly.

The CMP connects Corridor challenges with opportunities to achieve goals.

See page 25 for a full-size version.

SR 28 CMP 2013

Partnerships

Technology

Purpose & Need

SR 28 Corridor Management

Public Safety

Safety

Emergency Turnouts

Enforcement

Alt. Trans.

Systems

Buses

Transit Stops Ped. &

Bike Paths

Int. of Res.

Mngmnt.

Forest Health

Cultural/ Historic

Biological

Restoration

Trails

Forest Roads

Experience

Aesthetics Scenic Byway

Corridor Parking

Amenities

Wayfinding Signs

Access Trails

Vista Points

Gateways

Interp.

Signage

Highway Operations

Signs

Bike Lanes Ped.

Crossings

Slopes

Drainage

ITS

Snow Removal

5 Benefit Areas Resource Plans

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Solutions As a result of Corridor analysis and aligning the challenges with opportunities, the Plan Partners, along with the consultants, developed a strategy and a series of solutions that maintain appropriate visitor use levels while improving safety, protecting Lake Tahoe, and enhancing the visitor experience. A summary of the strategies and recommendations are below.

Relocated Shoulder Parking

• Relocate shoulder parking and provide safe, environmentally appropriate parking.

• Provide additional off-highway parking by expanding existing lots, developing new lots, and formalizing existing shoulder parking. Additional parking should be designed to accommodate the peak overall demand for shoulder season use when transit is not running.

• Accommodate future shared-use path parking demands.

• Locate new parking and design transit to accommodate current recreation access patterns and use levels.

• Expand the no parking zone and provide barriers or signage and enforcement concurrently with relocated shoulder parking.

• Work with the management team to address parking management issues such as paid parking, time of openings/closure, and snow removal for lots that may be open year-round.

• Improve access with trail system connectivity to parking and recreation destinations.

Shoulder Parking Relocation Summary Summer's peak overall demand: 593 shoulder-parked vehicles

Stateline-to-Stateline Bikeway parking demand: 81 spaces

Total: 674 relocated spaces

Existing and potential off-highway parking areas do not have the ability to accom-modate the relocation of summer peak overall parking demands. Sand harbor has 530 spaces and there is limited ability to add additional on-site parking. The same is true for other corridor parking areas. Transit is needed to meet the excess demand.

Consequently, shoulder parking is relocated to both additional internal off-highway parking and new external park-n-ride lots at the Corridor's north and south ends.

Because transit is only recommended for peak summer use and will end after La-bor Day, the peak overall demand for shoulder parking during the shoulder-season is accommodated by increasing off-highway parking near each recreation site.

Hidden Beach/ Flume Trail Area 141 Sept. overall peak shoulder parked cars & bikeway parking spaces

SOUTH CORRIDOR

PARK-N-RIDE

53 cars

NORTH CORRIDOR PARK-N-RIDE

168 cars

156 cars projected to initially not take transit

Sand Harbor Area 8 Sept. overall peak shoulder parked cars (moved to demand reduction)

Thunderbird Cove 15 Sept. overall peak shoulder parked cars Chimney Beach and Secret Harbor Area 121 Sept. overall peak shoulder parked cars

Skunk Harbor Area 20 Sept. overall peak shoulder parked cars

Hidden Beach

Chimney Beach

Secret Harbor

Skunk Harbor

Rocky Point

Memorial Point

Thunderbird Lodge

Deadmans Point

Sand Harbor

A

B

Recommended Relocation of Shoulder Parking to Safe, Off- Highway Parking Areas and Park-n- Ride Areas

SR 28 Corridor Management Planxiv |

The approximate, recommended number of relocated shoulder parking spaces is shown below for each existing and new trailhead.

TRAILHEAD PARKING SPACES

Flume Trail Trailhead (New) 31

North Trailhead Parking Areas A & B (New) 98

Rocky Point Vista Parking (New) 12 (plus up to 4 vista spaces)

Thunderbird Cove Trailhead (New) 15

Chimney Beach Trailhead (Existing) 67 add'tl spaces (21 existing)

Secret Harbor Trailhead (Existing) 54 add'tl spaces (31 existing)

Skunk Harbor Trailhead (New) 20 (plus up to 3 Tribe spaces)

North Corridor Park-n-Ride (New) 168

South Corridor Park-n-Ride (New) 53

Initial Demand Reduction (Users who will go elsewhere instead of using transit – corresponds with potential park-n-ride lot growth while maintaining current visitor use)

Total 674

Notes

• The number of spaces at the park-n-rides may increase over time to accom-modate the number of spaces associated with the initial demand reduction as users choose use transit.

• The quantity of relocated parking spaces allows for current user demand and visitor use patterns to continue. Agencies may revisit capacity in the future.

• Parking is limited to 15 spaces at the Thunderbird Cove trailhead due to limited beach area and potential resource impacts to the shoreline between

Thunderbird Cove and Sand Harbor.

• Chimney Beach and Secret Harbor Trailheads work in concert to meet shoulder parking relocation needs for the Chimney Beach and Secret Harbor beaches. No one parking area could expand or be developed to relocate all of the parking. Therefore, the capacity is distributed among the parking loca-tions and trail connections disperse visitors.

Summer Transit Service

• Provide summer transit service along the east shore for safe visitor access during peak demand periods. Transit stops include the areas below. Addi-tional stops may be considered in the future.

-- Hidden Beach - Secret Harbor

-- Sand Harbor - Skunk Harbor

-- Chimney Beach - Spooner Lake

• Locate Park-n-Rides in Incline Village and near Spooner Lake.

• Monitor transit to manage visitor use levels. Adjust headways, the number of buses and number of stops accordingly.

• Initially, Hidden Beach may only have a northbound stop to allow land manag-ers an opportunity to monitor visitor use level impacts and to determine the feasibility of a southbound stop.

Existing and potential off-highway parking areas can not accommodate summer peak overall parking demands. Transit is needed to meet the excess demand.

Transit is only recommended for peak summer use. The peak overall parking demand for the shoulder-season is accommodated by increasing off-highway parking near each recreation site.

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Technology

• Provide technology-based improvements that assist and guide visitors to their destination and help traffic flow.

• Align projects, such as the co-location of utilities with trail improvements, where feasible to reduce cost and reduce construction delays on SR 28.

Bike Facilities

• Provide bike lanes. Where bike lanes can not be accommodated, shoulder widening and signage are called for. At a minimum, in steep sections there should be a bike lane in the uphill direction with a corresponding sharrow in the downhill direction.

• Implement the Stateline-to-Stateline Bikeway (shared-use path).

Environment and Aesthetics/Visitor Experience

• Implement NDOT's environmental improvement projects to reduce fine sedi-ments reaching Lake Tahoe, helping water quality/clarity.

• Improve accessibility and safety by enhancing visitor amenities such as view-points and emergency turnouts.

• Highlight the Corridor by creating enhanced gateway signage.

• Improve Corridor aesthetics by applying the enhanced standard of treatment described in NDOT's Landscape & Aesthetics Corridor Plan and the TRPA

Roadway Design Standards and Guidelines. Seek flexibility to the rigid ap-plication of technical standards to implement the design alternatives.

• Create a joint-use visitor center near Spooner Lake that also serves a function for park-n-ride users and aquatic invasive species inspections.

Implementation The CMP narrows the project list into manageable projects defined by segments.

Although projects are not listed in priority order, a large percentage of the Corridor problems are in the Incline Village to Sand Harbor segment. Therefore, it has been targeted as a high priority. Implementation of projects such as the East Shore

Express pilot project to Sand Harbor illustrate the significant benefits, such as reduced congestion at the Sand Harbor's entrance, which can be realized along the rest of the Corridor.

The CMP estimates maintenance and operating expenses to present a general sense of costs for improvements and to illustrate the need to look at funding strategies. Estimates use Washoe County Public Works' unit prices and apply a life span/depreciation factor. A contingency was added to account for additional costs that may be associated with projects in the Tahoe Basin such as stormwater treatment systems. These costs should be revised at the time of individual project design. As the CMP is implemented, projects should ensure they have a funding source for maintenance costs prior to moving forward.

A discussion of potential revenue sources identifies opportunities to be explored.

Implementation of a visitor fee should be explored by the partnering agencies and discussed with Corridor visitors. A pilot project at Sand Harbor may be conducted to evaluate the program's effectiveness.

The CMP estimates maintenance and operating expenses to present a general sense of costs for improvements and to illustrate the need to look at strategies to fund improvements.

SR 28 Corridor Management Planxvi |

Management Establishing a Management Team from the existing Plan Partners is recom-mended. The Management Team should work together to provide a coordinated approach to maintenance and operations. An Inter-local Agreement or other legal document would need to be developed amongst the agencies to provide the team's structure. It is not the intent to have this Management Team direct individu-al agency goals or their budgets but to establish a partnership that collaboratively works toward addressing their shared issues.

The proposed operations and maintenance responsibilities are derived based on discussions with partnering agencies and by identifying “who does what best”.

Although not a commitment to do the activities, the responsible agencies should be involved in future maintenance and operations discussions.

Management may be focused around lands each agency operates, but collaboration for increased mutual benefit should be established whenever possible and when funding allows. Currently the impacts of the Corridor are not being managed. Therefore as the CMP moves forward, management of the impacts represents an increase over current practices for the land management agencies.

Monitoring Benchmarks serve as a tool for implementation, improvement and innovation to achieve quality, efficiency, and effectiveness. Measuring the success of the CMP includes evaluating various aspects of the Plan so that partnering agencies can make improvements or adjustments as projects are implemented.

The metrics provide reference to existing conditions, note progress, and provide a look over time at emerging trends in the Corridor. Specific requirements for projects or programs are not addressed at this level nor are specific protocols.

Tracking the data is not intended to be onerous. Most information is currently be-ing collected by agencies and is cost effective, reliable, and repeatable data that uses the same methods over time to insure a consistent data source.

A Living Document The CMP creates a platform for continuing a coordinated Corridor approach. It serves as a living and relevant framework insomuch that the Management Team maintains regular coordination and updates the action items and project list.

Key portions of the CMP are replicated in the Appendix to facilitate continual change and update. The project list is included in two forms. First, as Appendix

A, the list identifies the project stage, project elements, and potential timing. It clarifies how one project may be coordinated with another and how agencies might collaborate on multiple projects. Second, as Appendix B, the list identifies potential grant funding sources.

Appendix C includes the monitoring/metrics list that can be regularly updated during normal agency monitoring sequences.

Establishing a

Management

Team from the existing Plan

Partners is recommended.

The Management

Team should work together to implement projects and provide a coordinated approach to maintenance and operations.

Monitoring serves as tool for implementation, improvement, and innovation to achieve quality, efficiency, and effectiveness.

1 Value of the Plan

CHAPTER 1: Value of the Plan | 1

SR 28 CMP 2013

Partnerships

Technology

Purpose & Need

SR 28 Corridor Management

Public Safety

Safety

Emergency Turnouts

Enforcement

Alt. Trans.

Systems

Buses

Transit Stops Ped. &

Bike Paths

Int. of Res.

Mngmnt.

Forest Health

Cultural/ Historic

Biological

Restoration

Trails

Forest Roads

Experience

Aesthetics Scenic Byway

Corridor Parking

Amenities

Wayfinding Signs

Access Trails

Vista Points

Gateways

Interp.

Signage

Highway Operations

Signs

Bike Lanes Ped.

Crossings

Slopes

Drainage

ITS

Snow

SR 28 Corridor Management Plan2 | CHAPTER 1: Value of the Plan

Value of the Plan

Nevada State Route 28 (SR 28) parallels the longest stretch of undeveloped shoreline along Lake Tahoe. Designated a national scenic byway by the Federal

Highway Administration (FHWA) in 1996, the highway is referred to as “America’s

Most Beautiful Drive” by the National Scenic Byways Program or "American

Byways®” as it showcases Lake Tahoe’s crystal blue waters and unique boulder outcroppings. Recreation destinations include Forest Service beaches and Sand

Harbor of Lake Tahoe Nevada State Park, one of Lake Tahoe’s most popular des-tinations. A number of highly desired beaches, trails, lakes, and historic resources draw visitors who enjoy swimming, sunbathing, picnicking, bicycling, hiking, walk-ing, boating, fishing, x-country skiing, snowshoeing, and just relaxing.

The two-lane highway hugs the steep mountainside and provides the only access route for over one million visitors annually recreating (State Parks, 2011) and also carries over 2.6 million vehicles per year (based on NDOT traffic counts from http://www.nevadadot.com/About_NDOT/NDOT_Divisions/Planning/Traffic/An-nual_Traffic_Reports.aspx), of which, many are taking the popular scenic drive around Lake Tahoe.

The area’s rugged terrain and sensitive resources limit the ability to provide off-highway parking facilities for the large numbers of visitors. Vehicles park along narrow shoulders, at the edge of steep terrain, and in areas of limited sight distance. Pedestrians are then forced into travel lanes with children, dogs, cool-ers, chairs, and other recreation gear as they make their way to their destination.

In 2011 at the hour of peak overall parking demand, surveyors counted 593 cars1 parked along the roadway shoulder – equating to almost 2,000 people walking along the roadway in heavy vehicular traffic (LSC, September 8, 2011).

Safety hazards created by the shoulder-parked cars include:

• Pedestrians walking in travel lanes,

• Cars parked over the fog line,

• Vehicle accidents as cars stop abruptly to park along the shoulder,

• Drivers making U-turns across the highway to secure a parking spot,

• Pedestrians jumping over guardrails to make their way from the road shoulder to the beaches, and

• Lack of room for bicyclists using the Corridor.

The lack of coordinated Corridor solutions for recreation and user access dam-ages the sensitive resources, degrading the pristine lake environment and scenic resources. Users create unauthorized trails as they cut across the hillsides from their shoulder-parked cars, causing erosion and impacting lake clarity and quality.

An increase in visitors and Corridor use threatens to compound the prevalent safety and environmental issues. Surveys documented a 100% increase in peak hour parking for the different beaches from 318 cars in August 2000 to 687 cars1

SR 28 provides the only access route for over one million visitors annually recreating at beaches, trails, and historic sites. Limited off-highway parking areas forces users to park along the highway and walk along the road to their destination.

Sand Harbor saw a 7% visitation increase in 2011 that contributed to Corridor congestion with traffic backed up over a mile.

User generated trails from roadside parking erode sensitive slopes and degrade water quality and clarity.

CHAPTER 1: Value of the Plan | 3

SR 28 parallels Lake Tahoe's longest undeveloped shoreline.

Crystal Bay

Sand Harbor

Skunk Harbor

Hidden Beach

Secret Harbor

Thunderbird Lodge

Incline Village

11 miles

7.5 miles

2 miles

.9 miles

.8 miles

1.6 miles

State Route 28 ~11 miles Emerald Bay ~7.5 miles

Baldwin and Kiva Beaches ~2 miles North of Meeks Bay ~1.6 miles

Zephyr Cove ~.9 miles Pope Beach ~.8 miles in 2011 (LSC, September 8, 2011). Sand Harbor saw a 7% visitation increase in 2011 that attributed to Corridor congestion with traffic backed up over a mile (communication, State Parks/Jay Howard, 2011). Biking and pedestrian levels have also increased.

1Note: The peak hour parking count of 687 differs from the peak overall demand count of 593.

• Peak hour parking counts are calculated based on the individual hour each section of shoulder-parked vehicles reaches their peak number. This may occur at various hours throughout the day. For example, the shoulder parking areas around the USFS beaches may have reached their peak at 11AM and the areas around Sand Harbor may have reached their peak around 1PM. Peak hour parking sums the numbers of vehicles counted along each highway section during their individual peak times.

• The peak overall parking demand is determined based upon the hour in which the overall shoulder parking for the entire east shore portion of the Corridor was highest. It sums the number of vehicles for each section at this hour of peak overall demand.

• The Corridor Management Plan utilizes the peak overall demand number to evaluate where and how to appropriately relocate shoulder parking.

SR 28 Corridor Management Plan4 | CHAPTER 1: Value of the Plan

The Corridor

Management Plan is an umbrella document that recognizes previous, existing, and future projects and management plans.

Although previous planning efforts have sought solutions to these issues, little progress has been made. Since 1997, five Corridor Management Plans and/or parking/access management plans have been developed which address parking and access points along the Corridor. Some plans involved multiple agencies, while others were more internal. None made provisions to insure that a collabora-tive working group of agencies and stakeholders continued to work together to fulfill plan recommendations and complete critical Corridor projects.

This Corridor Management Plan (CMP) rectifies previous plan insufficiencies by:

• Addressing the fundamental issues generated from traffic, access, user con-flict, and their subsequent environmental impacts;

• Providing an umbrella document whereby the Corridor can be addressed at a contextual/watershed-level to understand all the management resources and actions which may impact Corridor management;

• Providing a living resource that can be updated annually with recommended projects and studies that support the Corridor goals;

• Monitoring progress and achievement of goals;

• Serving as an updated National Scenic Byway Corridor Management Plan, per the Federal Highway Administration’s 14-point list; and

• Most importantly, using project charters and inter-local agreements to estab-lish a mechanism for implementation and continued agency coordination for a single strategy to achieve the five benefits (see page 12).

CHAPTER 1: Value of the Plan | 5

The Corridor

Management Plan creates a platform for a coordinated approach between agencies and stakeholders to comprehensively develop viable solutions and future collaborations so they may operate more effectively and efficiently within the

Corridor.

Plan Partners A number of agencies manage, administer, and/or operate lands within the Cor-ridor. The Tahoe Transportation District brought these entities together to develop a plan to address shared issues spanning jurisdictional boundaries. The Corridor crosses three counties and two communities within the Tahoe Basin. A large por-tion of the roadway travels through public lands managed by either the Nevada

Division of State Parks (State Parks) or the U.S. Forest Service Lake Tahoe Basin

Management Unit (USFS). The highway itself is operated by the Nevada Depart-ment of Transportation (NDOT). See Appendix E for the Project Charter.

Plan partners include the following:

• Tahoe Transportation District

• Tahoe Regional Planning Agency

• Nevada Division of State Parks

• U.S. Forest Service, Lake Tahoe Basin Management Unit

• Nevada Department of Transportation

• Nevada Highway Patrol

• Federal Highway Administration

• Washoe County

• Carson City

• Douglas County

• Nevada Division of State Lands

• Incline Village General Improvement District

• Washoe Tribe

SR 28 Corridor Management Plan6 | CHAPTER 1: Value of the Plan

Corridor Location The Corridor is not limited to the highway right-of-way. Although issues affecting the Corridor may be most easily seen along the roadway, management strategies must identify and understand the Corridor at a contextual level – from the trails and resource management areas along the Tahoe Basin ridgeline to the beaches and shoreline at Lake Tahoe’s edge.

This contextual planning approach does not supersede individual jurisdictions’ management plans, but rather allows for a coordinated approach and under-standing of projects and efforts. Plan partners can collaborate more effectively to identify joint projects and recognize opportunities for shared benefits within the

Corridor.

This approach reinforces the relationship between transportation planning and land use planning. Just as land use planning can not occur without considering the transportation network, transportation planning, or the CMP, is not complete without understanding the surrounding land uses and the impact on environmen-tal resources.

Focus of Plan Recommendations The majority of issues facing the Corridor are associated with recreation access from SR 28 and the visitor experience. Recommendations focus on addressing issues in the east shore recreation area south of Lakeshore Boulevard to the U.S.

50 intersection. While recommendations primarily focus on addressing the criti-cal issues of recreation access near the highway, the CMP also establishes the platform for problem-solving scenarios within the overall Corridor. Management of contextual areas should be coordinated between agencies.

Recommendations and projects identified as part of the CMP are organized ac-cording to location.

East Shore Recreation Segments:

• Area 1: Sweetwater Drive to Sand Harbor

• Area 2: Sand Harbor to Bliss Pond

• Area 3: Bliss Pond to U.S. 50

Community Segments

• Area 1: West Incline Village to Sweetwater Drive

• Area 2: Crystal Bay to West Incline Village

EAST SHORE

RECREATION AREA

FOCUS

CONTEXTUAL

FOCUS

CONTEXTUAL

FOCUS

COMMUNITY

SEGMENT FOCUS

Plan Focus

While focusing on the critical recreation access issues near the highway, the CMP takes a contextual rim to lake approach, that includes the trails and resource management areas from Lake Tahoe’s ridgeline to the beaches at its shoreline.

CHAPTER 1: Value of the Plan | 7

C A

LI

FO

R N

IA

N E

VA

D

A

Douglas County

Carson City

Carson City

Washoe County

Crystal Bay

Incline Village

Skunk Harbor

Secret Harbor

Chimney Beach

Hidden Beach

Rocky Point

Thunderbird Lodge

Deadmans Point

Memorial Point

Sand Harbor

SR 28 Corridor Project Study Area from Lake to Rim

Lake Tahoe Nevada

State Park

Lake Tahoe

Spooner Lake

Marlette Lake

Corridor Locat ion

SR 28 Corridor Management Plan8 | CHAPTER 1: Value of the Plan

Vision Statement Provide all users a Corridor from lake to rim that reflects its national scenic cor-ridor status and the unique qualities of the east shore of Lake Tahoe while defining connections to recreation areas, expanding transportation choices, promoting safety, improving water clarity, and enhancing the enjoyment of Lake Tahoe.

Mission Statement Improve the quality of Lake Tahoe's east shore and State Route 28, America's

Most Beautiful Drive, for visitors and residents through collaboration across juris-dictional boundaries.

Purpose & Need

Purpose The purpose of the SR 28 National Scenic Corridor Management Plan is to ad-dress the Corridor’s safety, transportation, environmental, recreation, scenic, and economic needs in a coordinated manner. The Plan is intended to facilitate imple-mentation of a long-term vision for the Corridor that accomplishes the following objectives:

• Reduces auto dependency, congestion, and vehicle miles of travel (VMT) by enhancing available multi-modal transportation options, such as the East

Shore Express and the Stateline-to-Stateline Bikeway (a shared-use path referred to as the Bikeway per initial working group discussions.)

• Enhances opportunities for accessibility. (Including Americans with Disability

Act (ADA) and Architectural Barriers Act (ABA), Forest Service Outdoor Rec-reation Accessibility Guidelines/Forest Service Trails Accessibility Guidelines

(FSORAG/FSTAG) for Federal facilities.)

• Maintains and enhances recreation travel access and connectivity.

The National

Scenic Byway, “America’s Most

Beautiful Drive” should provide the unique natural and human environment expected of its title.

CHAPTER 1: Value of the Plan | 9

Purpose:

-- Coordinated strategies

-- Viable solutions

-- Long-term vision

-- Recognize individual jurisdictions

-- Address Corridor needs

-- Reduce resource impacts

Need:

-- High recreation & user demand in a challenging physical environment

-- User activity impacts on the transportation system & transportation system impacts on natural resources & recreation experience

-- Unsafe shoulder parking

-- Multiple jurisdictions must coordinate efforts to complete projects

• Supports the protection, restoration, and sustainability of natural and cultural resources.

• Remains sensitive to cultural resources and traditions of the Washoe Tribe.

• Enhances visual quality by relocating shoulder-parked cars…