U.S. Department of Transportation 

Federal Railroad Administration

GLACIER RAIL PARK/KALISPELL CORE 

AREA DEVELOPMENT AND TRAIL 

PROJECT – MODIFICATIONS TO PHASE II 

FINDING OF NO SIGNIFICANT IMPACT (FONSI) 

U.S. Department of Transportation 1200 New Jersey Avenue, SE

Federal Railroad Administration Washington, DC 20590
FONSI for Modifications to Phase II of the Glacier Rail Park/Kalispell Core Area Development and Trail Project 1 

I. INTRODUCTION 

The U.S. Department of Transportation’s (USDOT) Federal Railroad Administration (FRA) completed an 

Environmental Assessment (EA) in May 2017 and issued a Finding of No Significant Impact (FONSI) on July 

18, 2017 for the Glacier Rail Park/Kalispell Core Area Development and Trail Project (Project). The Project 

Sponsor is the City of Kalispell, Montana, who received a grant for the Project under USDOT’s Fiscal Year 

(FY) 2015 Transportation Investment Generating Economic Recovery (TIGER) Discretionary Grant 

Program. FRA is administering the TIGER grant. Since FRA’s issuance of the 2017 FONSI, the City has 

proposed modifications to Phase II of the Project, which FRA evaluated in a Supplemental EA (SEA) to 

determine whether the proposed modifications would have a significant impact on the environment. FRA 

and the City made the SEA available for a 30-day public review and comment period between October 21, 

2019 and November 19, 2019.

Consistent with the National Environmental Policy Act (NEPA), of 1969 (42 USC § 4321 et seq.), as 

amended, and FRA’s Procedures for Considering Environmental Impacts (64 FR 28545, May 6, 1999), FRA 

prepared an SEA for the limited purpose of determining if the City’s proposed modifications to Phase II of 

the Project would change the impacts to the human and natural environment disclosed in the 2017 EA 

and FONSI. Specifically, the SEA analyzed the potential impacts to: air quality; noise; land use; ecological 

systems; traffic and transportation; socioeconomics and environmental justice; relocations; and 

hazardous waste. FRA has evaluated the proposed modificationsto Phase II of the Project and determined 

they will not result in any significant environmental impacts, and preparation of an environmental impact 

statement is not required. 

This FONSI summarizesthe relevant elements of Phase II of the Project as approved in the 2017 EA/FONSI, 

the proposed changes to Phase II of the Project analyzed in the 2019 SEA, and the findings by resource 

area. This FONSI will be available on the FRA and Kalispell project websites, along with the 2017 EA and 

FONSI and the 2019 SEA.1 Phase I of the Project has been completed, and the scope of this FONSI is limited 

to the City’s proposed changes to Phase II of the Project. 

II. PROJECT DESCRIPTION

As stated in the 2017 EA, the purpose and need of the Project is to improve the layout, safety, and 

economic vitality of the Kalispell Core Area through improved roadway traffic and safety and efficiency 

and provide safe, alternative modes of non-motorized transportation by repurposing the existing 

railroad ROW. To achieve the purpose and need the City proposed to implement the Project in two

phases:

 Phase I – Construction and operation of a rail-served industrial park (Rail Park) and associated 

construction of roadway and traffic control improvements and installation and extension of utilities 

to serve the Rail Park.2

 

 

1 https://railroads.dot.gov/rail-network-development/environment/environment; 

https://www.kalispell.com/164/Community-Development; http://www.kalispellcoreandrail.com/ 2 This phase of the Project was completed in February 2020.
FONSI for Modifications to Phase II of the Glacier Rail Park/Kalispell Core Area Development and Trail Project 2 

 Phase II – Abandonment of rail service on the existing rail line; removal of 1.6 miles of existing 

railroad track from north of the railroad bridge spanning US Highway 2 to Meridian Road; 

construction of an Americans with Disabilities Act (ADA)-compliant paved public-use trail (i.e., 

Kalispell Trail) in a non-contiguous linear park within the former railroad ROW; and construction of 

at least one new north-south street connection(s) (i.e., complete street(s)) to improve connectivity 

in downtown Kalispell. 

III. PROPOSED MODIFICATIONS TO PHASE II OF THE PROJECT

Following issuance of the 2017 EA and FONSI, the City proposed potential modifications to Phase II of the 

Project, including three options for the location of complete streets previously identified by the City early 

on in project planning, but not evaluated in detail in the 2017 EA. The City’s interest in giving further 

consideration to these complete street options was based on input received during public and agency 

outreach conducted by the City for the Project after issuance of FRA’s NEPA decision in 2017. Also, since 

the 2017 EA, the City has had difficulties conducting property appraisals and purchasing property that 

would be necessary to implement two of the potential complete street locations(6th and 8th Avenue WN).

3

In addition, the City identified two minor modifications to Phase II of the Project as a result of its public 

outreach efforts and continuation of the Project planning process; these modifications are located within 

the 2017 EA Study Area and Project Area, but were not analyzed in the 2017 EA.

In the 2017 EA, FRA evaluated three options for the location of complete streets: 8th Avenue WN, 6th 

Avenue WN, and Whitefish Stage Road (7th Avenue EN). The 2017 EA provides a physical description of 

these three complete street options and quantifies the relocations and property acquisitions that would 

be necessary to construct each option.

The 2019 SEA analyzed three additional options for the location of complete streets: 1st Avenue WN, 3rd 

Avenue WN, and 4th Avenue WN. The 2019 SEA also analyzed two minor modifications to Phase II of the 

Project: the Kalispell Trail realignment, and the northeast trailhead connection. 

• 4th Avenue WN. This complete street option would improve 4th Avenue WN from the north, 

across the existing railroad corridor/future Kalispell Trail. To implement this connection, 

reconfiguration of the Mall parking lot would be necessary to address the offset between 4th 

Avenue WN and the existing major aisle in the parking lot. Unless the diagonal parking 

configuration is modified, traffic entering the Mall would be required to turn right to access the 

Mall parking lots. Approximately 3,300 square-feet of Mall property would be temporarily 

disturbed, and approximately eight parking spaces at the Mall would be permanently lost. During 

final design for Phase II of the Project, the City and Mall owners would enter into an agreement 

that outlines each party’s responsibilities for the construction and long-term maintenance of a 

 

3 To purchase property from private owners, the City would be required to follow the Uniform Relocation 

Assistance and Real Property Acquisition Act of 1970 (Uniform Relocation Act). The City has historically been and 

remains reluctant to take any property through the eminent domain process. 
FONSI for Modifications to Phase II of the Glacier Rail Park/Kalispell Core Area Development and Trail Project 3 

complete street. The agreement would also address the Kalispell Trail realignment and any net 

loss of parking spaces at the Mall. 

The approach to the business parking lot at the intersection of US Highway 2 and 4th Avenue WN

might require relocation, and parking spaces could be lost, depending on the ROW and complete 

street cross-section. However, without final design plans, it is not possible at this time to 

determine if there would be a net loss of parking spaces at this business. During final design for 

Phase II of the Project, an agreement would be established between the City and the business 

owner to address any net loss of parking spaces. For safety reasons, Railroad Street West, which 

is not improved or a public facility and does not provide any private access, would also need to be 

blocked permanently at 4th Avenue WN.

• 3rd Avenue WN. This complete street option would connect 3rd Avenue WN from north, across 

the existing railroad corridor/future Kalispell Trail. To implement this connection, approximately

900 square-feet of Mall property would be temporarily disturbed. Approximately two to four 

parking spaces, which are currently located in the public ROW and being used for a private 

business immediately north of the proposed Kalispell Trail on the east side of 3rd Avenue WN, 

would be permanently lost. During final design for Phase II of the Project, the City and Mall 

owners would enter into an agreement that outlines each party’s responsibilities for the 

construction and long-term maintenance of a complete street. The approach to the business 

parking lot at the intersection of US Highway 2 and 3rd Avenue WN might require relocation or 

reconfiguration, and parking spaces could be lost, depending on the ROW and complete street 

cross-section. However, without final design plans, it is not possible at this time to determine if 

there would be a net loss of parking spaces at this business. An agreement would be established 

between the City and business owner to address any net loss of parking spaces.

• 1st Avenue WN. This complete street option would connect 1st Avenue WN from north, across 

the existing railroad corridor/future Kalispell Trail. To implement this connection, reconfiguration

of the Mall parking lot would be necessary to address the offset between 1st Avenue WN and the 

major aisle in the parking lot. Unless the diagonal parking configuration is modified, traffic 

entering the Mall would be required to turn right to access the Mall parking lots. Approximately 

900 square-feet of Mall property would be temporarily disturbed, and approximately 10 parking 

spaces at the Mall would be permanently lost. During final design for Phase II of the Project, the 

City and Mall owners would enter into an agreement that outlines each party’s responsibilities 

for the construction and long-term maintenance of a complete street. The agreement would also 

address the Kalispell Trail realignment and any net loss of parking spaces at the Mall.

The approach to the business parking lot at the intersection of US Highway 2 and 1st Avenue WN

might require relocation, and parking spaces could be lost, depending on the ROW and complete 

street cross-section. However, without final design plans, it is not possible at this time to 

determine if there would be a net loss of parking spaces at this business. An agreement would be 

established between the City and business owner to address any net loss of parking spaces.

• Kalispell Trail Realignment. This is a proposed modification to the alignment of a small segment 

of the Kalispell Trail between 4th Avenue WN and 5th Avenue WN. As part of the public outreach 
FONSI for Modifications to Phase II of the Glacier Rail Park/Kalispell Core Area Development and Trail Project 4 

and design efforts for Phase II of the Project, the Mall owners expressed to the City an interest in 

re-routing the proposed Kalispell Trail slightly north of the existing railbed to follow the north 

property boundary of the northwest corner of the Mall. Realignment of the Kalispell Trail slightly 

to the north could allow the Mall owners to construct more parking spaces contiguous to the 

existing Mall parking by utilizing a small portion of railbanked land. Under this scenario, the 

Kalispell Trail would be routed onto Mall property off the railbanked corridor from near 4th 

Avenue WN to 5th Avenue WN, a distance of approximately 345 feet, and would cross 5th Avenue 

WN in the same location as analyzed in the 2017 EA.

Should this modification to the Kalispell Trail alignment be implemented, the City and the Mall 

owners would enter into an agreement outlining roles, responsibilities, liability, and financial 

contributions. Within the agreement, the Mall owners would be required to pay for the cost of 

constructing the parking, plus any additional design and construction cost of the Kalispell Trail, 

beyond what it would cost to design and construct within the originally proposed railbanked 

corridor. In addition, the Mall owners would be required to adhere to the relevant terms and 

conditions of the railbanking agreement, particularly potential removal of parking or other 

infrastructure should the ROW revert to railroad use in the future.

• Northeast Trailhead Connection. This proposed modification refers to a potential connection of 

the northeast trailhead to adjacent public ROW at the Flathead Drive/US Highway 2 intersection. 

During the City’s planning efforts for Phase II of the Project, several options were identified 

regarding connection of the Kalispell Trail at its northeast end to existing public ROW. However, 

no option had been developed in detail prior to the award of the FY 2015 TIGER grant or the 2017 

EA. Since the 2017 EA, the City and the Montana Department of Transportation (MDT) have 

discussed constructing the trailhead portion of the Kalispell Trail through vacant MDT property to 

access Flathead Drive and the intersection at US Highway 2, a distance of approximately 300 feet. 

This intersection was signalized and improved as part of the recently-completed Phase I of the 

Project to provide vehicular access to the new Rail Park. This potential pedestrian/bicycle 

connection would transition down from the Kalispell Trail, just after the existing railroad bridge 

over US Highway 2 and just before the bump post at the end of the railbanked land. The proposed 

connection would meet the same design standards as the rest of the Kalispell Trail and ADA

requirements, including width, materials, and grade/elevation. The new connection would access 

the existing pedestrian features of the recently improved Flathead Drive/US Highway 2 

intersection. As of the date of the SEA, the City is investigating the specific type of agreement that 

would be needed with MDT to allow the construction and long-term use of the Kalispell Trail on 

MDT property.

The locations of the proposed Project changes, including the additional potential complete 

street locations, are shown in Figure 1.
FONSI for Modifications to Phase II of the Glacier Rail Park/Kalispell Core Area Development and Trail Project 5 

Figure 1. Project Area Assessed in 2017 EA and 2019 SEA

IV. SUMMARY OF FINDINGS FROM THE SEA

The 2017 EA is incorporated by reference into the SEA, and the three complete street options assessed in 

the 2017 EA (i.e., 8th Avenue WN, 6th Avenue WN, and Whitefish Stage Road [7th Avenue EN]) remain 

viable. Therefore, the scope of the SEA focused on only those resource areas that might be affected by 

the proposed modifications (i.e., construction and operation of a complete street at 1st, 3rd, and/or 4th

Avenue WN; the Kalispell Trail realignment at the Mall; and the northeast trailhead connection), or that

may have changed from what was described in the 2017 EA. The following resource areas were evaluated 

in the SEA, because (1) of the potential that the proposed modifications could create a different impact 

than what was described in the 2017 EA, or (2) the affected environment has changed since the 2017 EA.

The following paragraphs summarize the findings from the SEA by resource area.

Based on the evaluation conducted in the SEA, no significant impacts would result from the City’s 

proposed modifications to Phase II of the Project described above. The Project, if implemented as 

originally described in the 2017 EA/FONSI or with any of the modifications described in the SEA would 

achieve the purpose and need defined in Chapters 1.3 and 1.4 of the 2017 EA. The mitigation and 

minimization measures and best management practices (BMPs), identified in the 2017 FONSI are still 
FONSI for Modifications to Phase II of the Glacier Rail Park/Kalispell Core Area Development and Trail Project 6 

applicable to the Project. Where appropriate, additional mitigation minimization and BMPs are also 

identified. 

 Air Quality 

Construction Impacts: Construction and ground-disturbing activities would result in temporary 

emissions of criteria pollutants and fugitive dust for the complete street options, Kalispell Trail 

realignment, and the northeast trailhead connection. However, emissions are not anticipated to 

increase the frequency or severity of any National Ambient Air Quality Standards (NAAQS) violations 

or delay timely attainment of the NAAQS, and would be consistent with conformity regulations. 

Operation Impacts: Upon completion of construction, emissions that result from current conditions 

such as vehicle idling at grade crossings, poor traffic circulation, and lack of street connections 

through downtown Kalispell would be reduced. In addition, adding sidewalks and pedestrian 

pathways would increase the efficiency and public appeal for alternative and non-motorized modes 

of transportation within the City, such as walking, biking, and rollerblading, which could further 

reduce emissions. It is anticipated that air quality conditions within the Core Area would improve 

with the Build Alternative. 

Mitigation/Minimization/BMPs: The mitigation measures, minimization measures, and BMPs

included in the 2017 FONSI would be implemented, as appropriate. All construction equipment 

would comply with U.S. Environmental Protection Agency (EPA) emission standards for nonroad 

engines.

 Noise 

Construction Impacts: Construction of at least one complete street, the Kalispell Trail realignment, 

and the northeast trailhead connection would result in temporary increases in noise above baseline 

levels. Noise generated by construction activities would vary depending on the type of equipment 

used, the area that the action would occur in, and the distance from the noise source. 

Operation Impacts: Upon completion of construction, the business owners and residents along 1st, 

3rd, and/or 4th Avenue WN, north of the out-of-service railroad corridor would experience a slight 

increase in traffic noise once a complete street is constructed; however, this noise is expected to be 

offset by removal of the railroad tracks and associated noise from freight trains and train horns

traversing downtown Kalispell. In addition, any noise generated by increased vehicle traffic would 

be consistent with the existing noise in the surrounding area. The Kalispell Trail realignment and 

northeast trailhead connection would not result in operational noise impacts. 

Mitigation/Minimization/BMPs: The project schedule would include limits on the times of operation 

of construction vehicles and equipment. Construction would occur during daytime only and would 

not take place from 10:00 p.m. to 7:00 a.m. when the adjacent neighborhoods’ sensitivity to any

increased noise is more pronounced due to the lower level of ambient (background) noise at night 

compared to daytime noise levels.4 Additionally, construction activities would be restricted to 

 

4 Transit Noise and Vibration Impact Assessment Manual, September 2018, FTA Report No. 0123. 
FONSI for Modifications to Phase II of the Glacier Rail Park/Kalispell Core Area Development and Trail Project 7 

weekdays and would not occur on weekends, unless special permission is granted by the Kalispell 

Public Works Department or MDT.

 Land Use 

Construction and Operation Impacts: There would be no impacts on land use from construction and 

operation of at least one complete street, the Kalispell Trail realignment, or the northeast trailhead 

connection because the zoning would not change from the existing designations of B-3 (a business 

district that provides areas for development of congregated community shopping areas to serve 

neighborhoods) and B-2 (a business district that provides for those retail sales and service functions 

and operations that are typically characterized by outdoor display, storage, and/or sale of 

merchandise, by major repair of motor vehicles, and by outdoor commercial amusement and 

recreational activities). There would be increased access to the area immediately adjacent to US 

Highway 2 and US Highway 93 and undeveloped and underdeveloped lots north of the railroad 

corridor. A complete street would also provide opportunity for developers to construct additional 

businesses and residences along 4th, 3rd, 2nd, and 1st Avenue WN, W Montana Street, and US 

Highway 2, and improve the general appeal of the area. The Kalispell Trail realignment could allow 

the Mall to construct additional parking spaces, to offset the loss of any parking caused by 

implementation of certain complete street connections. 

Mitigation/Minimization/BMPs: None 

 Ecological Systems 

Construction and Operation Impacts: There is no substantial change in the affected environment 

for wildlife, fish, and vegetation species or habitat, and potential impacts described in the 2017 EA 

are similar for the SEA. Therefore, potential impacts on general wildlife, fish, and vegetation species 

and habitat were not re-assessed in the SEA. However, between the time of the EA and SEA, an 

additional protected species (i.e., wolverine [Gulo gulo luscus]) was proposed for federal listing as 

a threatened species under Section 7 of the Endangered Species Act (ESA). Because of the urban 

setting of the Project and lack of suitable habitat, the proposed modifications to Phase II of the 

Project would have no effect on the wolverine. 

Mitigation/Minimization/BMPs: The mitigation measures, minimization measures, and BMPs

included in the 2017 FONSI would be implemented, as appropriate.

 Traffic and Transportation 

Construction Impacts: There would be temporary increases in traffic and congestion in the vicinity 

of the complete street location(s), Kalispell Trail realignment, and trailhead connection because of 

construction vehicles and equipment. Residents, business owners, and retail patrons in the vicinity 

could experience temporary delays and detours during construction. Construction access routes 

have not been finalized, but major arterials, such as US Highway 2 and US Highway 93, are 

anticipated to be used by heavy equipment mobilizing to the work sites and staging areas.
FONSI for Modifications to Phase II of the Glacier Rail Park/Kalispell Core Area Development and Trail Project 8 

Operation Impacts: Beneficial impacts to traffic and transportation are expected upon completion 

of construction of Phase II of the Project. Operation of at least one complete street would increase 

the number of north-south connections in the Core Area, reduce traffic congestion, and circulation 

(particularly in the vicinity of US Highway 2, 5th Avenue WN, West Center Street, and US Highway 

93), and increase accessibility and connectivity to the businesses in the US Highway 2/US Highway 

93 area and underdeveloped and undeveloped lots north of the railroad corridor. Completion of at 

least one street connection with improvements, including sidewalks, would also provide

connectivity for pedestrians in areas previously void of those facilities (i.e., north of the railroad 

corridor). Adverse impacts may occur to existing residents and businesses along US Highway 2 and 

the complete street(s), because there would be a slight increase in annual average daily traffic 

(AADT) as patrons travel to and from the retail uses, and if new businesses and/or residential areas 

are developed north of the railroad corridor. With the increase in accessibility and connectivity to 

the underdeveloped and undeveloped lots north of the railroad corridor, the general appeal of the 

area would be improved, and additional businesses and residences could be developed along 4th, 

3rd, 2nd, and 1st Avenue WN; W Montana Street; and US Highway 2. Traffic on US Highway 2 is 

estimated to increase by approximately 140 vehicles during the evening peak hours (i.e., 3:00 p.m. 

to 6:00 p.m.) with construction of at least one complete street. However, this slight increase in 

traffic would not exceed the capacity of the current roads. 

In addition, there would be a loss of parking spaces from implementation of the complete streets 

analyzed in the SEA: the 1st Avenue WN complete street would result in a loss of approximately ten 

(10) parking spaces at the Mall; the 3rd Avenue WN complete street would result in a loss of 

approximately two (2) to four (4) parking spaces that are utilized by a private business but are

located in the City-owned/public ROW (i.e., the parking spaces are not on property owned by the 

private business); and the 4th Avenue WN complete street would result in a loss of approximately 

eight (8) parking spaces at the Mall. However, realignment of the Kalispell Trail at the northwest 

corner of the Mall could allow the Mall to construct additional parking spaces, which would offset 

the loss of any parking caused by implementation of certain complete street connections.

Approaches to the business parking lots at the intersections of US Highway 2 and 1st, 3rd, and 4th

Avenue WN might require relocation, and parking spaces could be lost, depending on the ROW and 

complete street cross-section. However, without final design plans, it is not possible at this time to 

determine if there would be a net loss of parking spaces at these businesses. 

The Kalispell Trail realignment would have no adverse impacts on traffic and transportation, as it 

would cross 5th Avenue WN in the same location as analyzed in the 2017 EA. The northeast trailhead 

connection would have no adverse impacts on traffic and transportation; beneficial impacts would 

be expected from increased pedestrian and non-motorized access and increased safety for these 

alternative transportation modes. 

Mitigation/Minimization/BMPs: The mitigation measures, minimization measures, and BMPs

included in the 2017 FONSI would be followed, as appropriate. In addition, the City will enter into 

an agreement with the Kalispell Center Mall owners to address the Kalispell Trail realignment and 

any net loss of parking spaces at the Mall as a result of construction of either the 1st or 4th Avenue 
FONSI for Modifications to Phase II of the Glacier Rail Park/Kalispell Core Area Development and Trail Project 9 

WN complete streets. If a net loss of parking spaces would result from approach relocations at the 

intersections of US Highway 2 and 1st, 3rd, and 4th Avenues WN, the City will enter in an agreement 

with the affected business owner(s) to address this issue. 

For the northeast trailhead connection, the City will enter into an agreement with MDT, the owner 

of the vacant property the trailhead connection would traverse.

 Socioeconomics and Environmental Justice 

Construction Impacts: There may be temporary, localized impacts on commercial businesses and 

residences north of the railroad corridor during construction of at least one complete street along 

1st, 3rd, and/or 4th Avenue WN and the Kalispell Trail realignment. There may also be temporary, 

localized impacts on commercial businesses and residences west and east of the railroad corridor, 

respectively, near the Flathead Drive/US Highway 2 intersection during construction of the 

northeast trailhead connection. Impacts could include noise above ambient levels, visibility of 

construction equipment and activities, fugitive dust emissions, and temporary pedestrian and traffic 

delays, detours, and congestion. Fugitive dust from ground-disturbing activities would be greatest 

during initial site-preparation and would vary from day to day, depending on the construction 

phase, level of activity, and prevailing weather conditions. Persons within the viewshed of 

temporary construction activities would see construction workers, equipment, lighting, materials, 

debris, signing, and activities typically associated with construction. Noise generated by 

construction activities would vary depending on the type of equipment used, the area that the 

action would occur in, and the distance from the noise source.

Operation Impacts: Increased connectivity within and access to the Core Area as a result of the 

removal of the railroad infrastructure and implementation of one or more complete street 

connections is anticipated to result in socioeconomic benefits. Having at least one complete street 

along 1st, 3rd, or 4th Avenue WN would improve the general appeal of the area and spur 

development along these streets, W Montana Street, and US Highway 2. Underdeveloped and 

undeveloped lots north of the railroad corridor would become more attractive to developers, 

visibility of existing businesses north of the railroad corridor would increase, and connectivity in the 

community would be improved. Long-term, beneficial impacts on the local economy would be 

expected, as there could be increases in the purchase of goods and services in the local area and 

subsequent induced development. This could provide overall economic benefits to the area through 

the creation of jobs and increased tax revenue. Traffic circulation and connectivity would also be 

improved, and additional transportation options (e.g., walking and biking) would be available, 

connecting people and neighborhoods with jobs, services, and goods. There would be no direct or 

indirect impacts on environmental justice populations, as no such populations are present within 

the Study Area. 

Mitigation/Minimization/BMPs: The mitigation measures, minimization measures, and BMPs

included in the 2017 FONSI would be implemented, as appropriate.
FONSI for Modifications to Phase II of the Glacier Rail Park/Kalispell Core Area Development and Trail Project 10

 Relocations

Construction Impacts: Construction of at least one complete street on 1st, 3rd, or 4th Avenue WN

would be completed within either current Burlington Northern Santa Fe (BNSF) or City ROW. For 

1st and 3rd Avenue WN, approximately 900 square-feet of Mall property would be temporarily 

disturbed, and for 4th Avenue WN, approximately 3,300 square-feet of Mall property would be 

temporarily disturbed. 

Operation Impacts: The Kalispell Trail realignment would be located on Mall property; however, the 

construction of parking spaces to serve Mall patrons would be located on the railbanked land 

between 4th Avenue WN and 5th Avenue WN. The amount of property temporarily disturbed is yet 

to be determined and is dependent on the Mall’s parking design. 

Implementation of one or more complete street on 1st, 3rd, and/or 4th Avenue WN would result 

in the permanent loss of parking spaces: the 1st Avenue WN complete street would result in the 

loss of approximately ten (10) parking spaces at the Mall; the 3rd Avenue WN complete street 

complete street would result in the loss of approximately two (2) to four (4) parking spaces, which 

are currently located in the public ROW and being used for a private business; and the 4th Avenue 

WN complete street would result in the loss of approximately eight (8) parking spaces at the Mall. 

In addition, approaches to the business parking lots at the intersections of US Highway 2 and 1st, 

3rd, and 4th Avenue WN might require relocation, and parking spaces could be lost, depending on 

the ROW and complete street cross-sections. However, without final design plans, it is not possible 

at this time to determine if there would be a net loss of parking spaces at these businesses. 

For the Kalispell Trail realignment, parking could be constructed by the Mall on the railbanked area, 

which could potentially offset the loss of parking caused by the implementation of one or more of 

the complete street options. The northeast trailhead connection would be located on vacant land 

owned by MDT and would not displace or require MDT to relocate its facilities or operations.

Mitigation/Minimization/BMPs: The mitigation measures, minimization measures, and BMPs

included in the 2017 FONSI would be followed, as appropriate. In addition, the City will enter into 

an agreement with the Mall owners that outlines each party’s responsibilities for the construction 

and long-term maintenance of a complete street. The agreement would also address the Kalispell 

Trail realignment and any net loss of parking spaces at the Mall as a result of the 1st and 4th Avenue 

WN complete streets. If a net loss of parking spaces would result from approach relocations at the 

intersections of US Highway 2 and 1st, 3rd, and 4th Avenues WN, the City will enter in an agreement 

with the affected business owner(s) to address this issue. The City would enter into an agreement 

with MDT for the northeast trailhead connection. 

 Hazardous Waste 

Construction Impacts: Hazardous materials or hazardous wastes are not anticipated to be present

in amounts or locations that would pose a risk to public health or the environment. The City Service 

Valcon leaking underground storage tank (LUST)/underground storage tank (UST) site is located 

near the proposed trail at 5th Avenue WN. However, ground-clearing activities for the complete 

streets, the Kalispell Trail realignment, and the northeast trailhead connection would be shallow 
FONSI for Modifications to Phase II of the Glacier Rail Park/Kalispell Core Area Development and Trail Project 11

and would not reach groundwater. Construction activities may require the use of small amounts of 

hazardous materials (e.g., cleaning agents, lubricants, fuels, solvents, fertilizers, asphalt) and may 

result in the generation of hazardous waste (e.g., oily rags, used chemical containers, used oil, 

chemical waste). 

Operation Impacts: None 

Mitigation/Minimization/BMPs: The mitigation measures, minimization measures, and BMPs

included in the 2017 FONSI would be implemented, as appropriate.

V. PUBLIC COMMENTS ON SEA AND FRA/CITY RESPONSES

The City’s public outreach efforts are described in Section 1.2.2 of the SEA. A total of 23 organizations or 

individuals submitted comments on the SEA during the public comment period. The majority of the 

commenters expressed support for the Project in general. Of the commenters that indicated a preference 

for a particular complete street location, the highest preference was for 1st Avenue WN, followed by 

Woodland Avenue, and then 4th Avenue WN. Several commenters also expressed concerns regarding the 

Project. These concerns are summarized and addressed in this section. 

Response to concerns regarding inconsistency with Project Purpose: 

One commenter expressed concern that the 1st Avenue WN, 3rd Avenue WN, and 4th Avenue WN

complete street options would be inconsistent with the Project’s purpose. As described in the 2017 EA, 

the purpose of the Project is to: improve roadway traffic, safety, and efficiency; provide safe, alternative 

(non-motorized) modes of transportation for residents and visitors; revitalize Kalispell’s historic 

downtown area to attract additional businesses, retail, and residential uses; and provide local and regional 

business access to rail.5

These three complete street options were not evaluated in the 2017 EA because, at the time, the City 

identified potential traffic and access concerns with these options. As a result, the City determined these 

options did not achieve the Project’s purpose. Based on public input and support, the City evaluated more 

favorable options (i.e., 8th Avenue WN, 6th Avenue WN, and Whitefish Stage Road [7th Avenue EN]) in 

the 2017 EA. However, the City has faced challenges – as explained in Section III of this FONSI – in pursuing 

the options for complete street locations identified in the 2017 EA and FONSI and has provided 

information to FRA demonstrating the 1st Avenue WN, 3rd Avenue WN, and 4th Avenue WN complete 

street options would achieve the Project’s purpose. FRA has reviewed the City’s original traffic analysis 

conducted for the Project study area (2016), and the City’s updated traffic analysis (2019) based on the 

 

5 The commenter also expressed a concern that the addition of these complete street options is inconsistent with 

the Project’s purpose in the Grant Agreement between the City and FRA, which states the Project’s purpose is: To 

improve safety and quality of life, and increase economic competitiveness of the Core Area in the City of Kalispell. 

This is accomplished through improved roadway traffic safety and efficiency; the provision of safe, alternative 

modes of transportation; the revitalization of Kalispell’s historic downtown area to attract additional businesses, 

retail, and residential uses; and through the provision of local and regional business access to rail. The Rail Park will 

provide for future economic development and allow connectivity to regional, national, and international markets.

This is consistent with the Project’s purpose and need defined in Chapter 1 of the 2017 EA and incorporated by 

reference into the 2019 SEA.
FONSI for Modifications to Phase II of the Glacier Rail Park/Kalispell Core Area Development and Trail Project 12

most recent traffic data available within the Project study area, for streets crossing the Kalispell Trail at 

1st, 3rd, and 4th Avenues WN and determined these options would achieve the Project’s purpose.

Furthermore, the addition of these three complete street options does not preclude the City from 

constructing any of the previously identified options. 

The 1st, 3rd, and 4th Avenue WN complete street options would provide an indirect connection to the 

south, because of the location of the Mall. Currently, patrons traveling to the retail areas north of the 

railroad corridor and Mall must travel around the Mall using 5th Avenue WN, West Center Street, and US 

Highway 93, because 4th, 3rd, and 1st Avenue WN are dead-ended. A direct connection is not required to 

meet the Project’s purpose. These indirect connection options would improve local street connectivity 

and convenience between the Mall parking lot and streets to the north, while reducing traffic volumes on 

neighboring streets. As a result, completion of at least one of these complete street options would 

improve roadway traffic safety and efficiency. Currently, vehicular traffic movement is limited by the 

railroad tracks, which split and isolate Kalispell into two portions, and there are only six at-grade crossings. 

The traffic analyses conducted for the Project study area demonstrate that additional access on the north 

side of the Mall would be expected to increase connectivity and improve circulation, specifically in the 

vicinity of US Highway 2, 5th Avenue WN, West Center Street, and US Highway 93. The City’s design may 

result in a reduction of street width or inclusion of a refuge island at the crossings to increase pedestrian 

safety; however, this would not decrease street capacity or transportation efficiency. 

In addition, these complete street options, and proposed modifications to Phase II, would provide safe 

alternative modes of transportation for residents and visitors. Removal of the railroad line would provide 

a safety benefit to the community, and construction of a trail within the ROW would provide recreational 

and mobility alternatives for the public and visitors. The trail and at least one complete street would 

encourage walking and other non-motorized transportation modes as a safe alternative for travel and 

provide improved pedestrian access into downtown. This would help ensure City streets are safe for 

people of all ages and abilities, balance the needs of different transportation modes, and have socioeconomic and environmental benefits.

All the potential complete street locations, including those evaluated in the 2017 EA and the 1st, 3rd, and 

4th Avenue WN options north of the Mall evaluated in the SEA, would provide a north-south connection. 

Each completed street connection(s) would meet the City’s complete streets policy (per the City of 

Kalispell Growth Policy Plan-It 20356

) and local street standards (per the Standards for Design and 

Construction dated January 21, 2020), providing two 14-foot-wide driving lanes, a minimum 9-foot-wide 

boulevard separating the roadway from a 5-foot-wide sidewalk, tree plantings, and sewer and water 

extensions, as needed for this Project. In addition, warning or stop signs would be installed at road 

crossings, and curb bump outs would be installed to reduce the distance pedestrians must cross. 

Removal of the active freight rail service and rail infrastructure would facilitate future transportation 

network connections, and provide opportunities for economic development. The Project would allow for 

development of underdeveloped and undeveloped lots north of the existing railroad corridor/future 

Kalispell Trail and improve the general appeal of the area.

 

6 https://www.kalispell.com/DocumentCenter/View/465/Kalispell-Growth-Policy-Plan-It-2035-PDF 
FONSI for Modifications to Phase II of the Glacier Rail Park/Kalispell Core Area Development and Trail Project 13

Therefore, FRA has determined that the completion of at least one complete street option, identified in 

the 2017 EA and FONSI or the 2019 SEA, and the modifications to Phase II would achieve the Project’s 

purpose. 

Response to concerns regarding loss of access, loss of privacy, increased vandalism, light pollution, and 

signage: 

Commenters raised concerns regarding the loss of vehicular access to residential properties via the 

railroad ROW. Based on information available to the City, the railroad ROW has not provided legal or safe 

access to residential propertiessince the railroad was built in the late 1800s. The railroad ROW is currently 

private property owned by BNSF. The City is not aware of any legal agreement allowing home/landowners 

to access their property through BNSF property. Once the Railbanking and Sale Agreement between BNSF 

and the City is executed, the City will own the former railroad ROW, where the public-use trail and linear 

park will be constructed. The property – whether owned by BNSF or the City – is not a public street and 

cannot legally be used for vehicular or other access to adjacent residential properties. The anticipated 

redevelopment of this area from industrial and freight rail uses to a public-use trail will remove the existing 

blight, beautify and improve the safety of the area with landscaping, lighting, and other amenities, and 

invite legitimate uses. 

Some commenters were concerned that homeowners adjacent to the railroad ROW/proposed trail 

alignment would experience a loss of privacy in their backyards. The City’s landscaping design plans 

include planting of trees adjacent to the trail and planting of grass in the remaining non-paved areas of 

the ROW. The selected trees are anticipated to grow to height of roughly 10 to 14 feet. This landscaping, 

particularly the trees when mature, will help create a visual barrier between the trail and adjacent 

residences. Adjacent property owners may choose to install fencing, landscaping, and/or exterior lighting 

at their own expense and in accordance with City requirements to improve safety and privacy. The City 

will be responsible for maintaining the park and the trail. Specifically, trail maintenance will be assigned 

either to the City’s Parks Department or Public Works Department. 

Commenters noted concerns with the potential for increased vandalism and theft by users of the trail. 

The City’s design plans include installation and maintenance of lighting along the trail, which will provide 

safety for users of the trail and could deter potential vandalism and trespassing. Crime Prevention 

Through Environmental Design (CPTED) principles include the use of lighting to help prevent and mitigate 

crime.7 If concerns such as vandalism or theft arise, they will be addressed by the City’s police department 

through enforcement.

With respect to trail lighting, commenters expressed concerns regarding light pollution from the trail. Trail 

lighting will be consistent with the City’s Zoning Ordinance 1677, Chapter 27.26 “Outdoor Lighting 

Standards,” which addresses dark skies requirements for both commercial and residential lighting. The 

City’s design plans include installation of lighting along the trail at approximately 90-foot intervals. The 

new lighting will be visually consistent with the historic aesthetic of the existing lighting in the downtown 

area. Existing street lighting will remain in use. 

 

7 Crowe, Timothy D., National Crime Prevention Institute (NCPI). Crime Prevention Through Environmental Design. 

2nd Edition. Butterworth-Heinemann. 2000. 
FONSI for Modifications to Phase II of the Glacier Rail Park/Kalispell Core Area Development and Trail Project 14

In addition, commenters emphasized the need for wayfinding signs from the trail to downtown Kalispell 

and for pedestrian connections from the trail to community services. The City’s design plans include the 

installation of wayfinding signs from the trail to downtown Kalispell. The City has reached out to Flathead 

Valley Community College's Industrial Arts program to assist in constructing poles from salvaged rail for 

wayfinding signage. The City intends to utilize its existing downtown wayfinding sign design and to work 

with the Trail Crew, Kalispell Business Improvement District Board, Kalispell Downtown Association, 

Kalispell Convention and Visitor Bureau, and Tourism Business Improvement District Board on signage 

messaging and locations encouraging interaction between the trail and downtown businesses. The Project 

will eliminate unsafe access to community services by persons crossing the active rail line or using the rail 

line as a pathway, and safe, convenient access to community services will be possible from the new trail.

Response to concerns regarding future development: 

Some commenters expressed concerns regarding a proposed new multi-story residential apartment 

building on the other side of the trail from an existing neighborhood of single-family homes. FRA does not 

have the authority to mandate the nature of potential future development of property near the trail, as 

it is beyond the scope of the Grant Agreement between FRA and the City. Any future development would 

be subject to the City’s zoning ordinances.8

 

VI. PROJECT COMMITMENTS 

As part of its environmental review, FRA identified certain environmental commitments, minimization 

measures, and BMPs as the practicable means to avoid or minimize effects from the construction and 

operation of the Project. These measures are listed in Appendix B of the 2017 FONSI. Additional measures

specific to the City’s proposed modifications since 2017 are included in Section IV of this document. 

The proposed Project is funded through a Grant Agreement between FRA and the City. Through that 

agreement and as the Project Sponsor, the City is responsible for ensuring all environmental commitments 

are implemented. FRA will monitor the City’s compliance with these measures as part of FRA’s periodic 

monitoring of the grant.

VII. CONCLUSION 

FRA finds that the 2017 EA and 2019 SEA for the Glacier Rail Park/Kalispell Core Area Development and 

Trail Project satisfy the requirements of FRA’s “Procedures for Considering Environmental Impacts” (64 

FR 28545, May 26, 1999) and NEPA (42 U.S.C § 4321 et seq.) and that he proposed modifications to Phase 

II of the Project would have no foreseeable significant impact on the quality of the human or natural 

environment. The SEA, which incorporates the 2017 EA by reference, provides sufficient evidence and 

analysis for FRA to determine that an environmental impact statement is not required. 

 

8 In 2016, the previous heavy industrial area was re-zoned as B-3. This zoning district allows a variety of both 

commercial and residential uses and is consistent with the Core Area Plan. Commercial uses typically include a mix 

of retail, office, restaurant, and other similar uses. This zoning district also allows for residential dwellings, 

including single family, duplex, townhouse (2 attached units), townhouse (3 or more attached units), and multifamily. 
FONSI for Modifications to Phase II of the Glacier Rail Park/Kalispell Core Area Development and Trail Project 15 

___________________________________ ________________________________ 

Jamie P. Rennert Date 

Director, Office of Program Delivery 

Office of Railroad Policy and Development 

Federal Railroad Administration 

FRA’s Office of Railroad Policy and Development prepared this document in July 2020 in accordance with 

FRA’s Procedures for Considering Environmental Impacts and NEPA. For information regarding this FONSI 

contact: 

Laura Shick 

Supervisory Environmental Protection Specialist 

U.S. Department of Transportation 

Federal Railroad Administration 

Office of Railroad Policy and Development 

1200 New Jersey Ave, SE Washington, DC 20590 

The following organization(s) assisted FRA’s Office of Railroad Policy and Development in the preparation 

of the associated EA and Supplemental EA: 

City of Kalispell, Montana 

KLJ Engineering 

JAMIE P. RENNERT Digitally signed by JAMIE P. RENNERT 

Date: 2020.08.14 10:24:25 -04'00'