U.S. Department of Transportation

Federal Railroad Administration

GLACIER RAIL PARK/ KALISPELL CORE 

AREA DEVELOPMENT AND TRAIL PROJECT

 FINDING OF NO SIGNIFICANT IMPACT

and

Section 4(f) Determination

July 2017
Glacier Rail Park/Kalispell Core Area

Development and Trail Project

Finding of No Significant Impact

July 2017

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Contents

1.0 INTRODUCTION.................................................................................................................................4

Figure 1: Project Location Map.............................................................................................................4

2.0 PURPOSE AND NEED..........................................................................................................................5

3.0 DESCRIPTIONOF ALTERNATIVES.......................................................................................................6

3.1 Existing Conditions........................................................................................................................6

3.2 No Build Alternative......................................................................................................................7

3.3 Build Alternative ...........................................................................................................................7

Figure 2: Glacier Rail Park Build Alternative Components..................................................................10

Figure 3: Kalispell Trail Build Alternative Components......................................................................11

4.0 SUMMARY OF EFFECTS ...................................................................................................................12

4.1 Air Quality ...................................................................................................................................12

4.2 Water Quality and Water Resources, including Wetlands .........................................................12

4.3 Ecological Resources, Threatened & Endangered Species, Eagles, and Wildlife, Fish and 

Vegetation...................................................................................................................................12

4.4 Energy and Climate Change ........................................................................................................13

4.5 Noise ...........................................................................................................................................13

4.6 Vibration .....................................................................................................................................14

4.7 Hazardous Materials...................................................................................................................14

4.8 Land Use......................................................................................................................................14

4.9 Cultural and Historic Resources..................................................................................................14

4.10 Section 4(f) Resources.................................................................................................................15

4.11 Socioeconomics and Environmental Justice ...............................................................................15

4.12 Aesthetics and Visual Resources.................................................................................................16

4.13 Traffic and Transportation ..........................................................................................................16

4.14 Relocations and Displacements..................................................................................................16

4.15 Public Health and Safety .............................................................................................................17

5.0 INDIRECT EFFECTS ...........................................................................................................................17

6.0 CUMULATIVE EFFECTS.....................................................................................................................18

7.0 PUBLIC INVOLVEMENT....................................................................................................................18
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8.0 ENVIRONMENTAL COMMITMENTS.................................................................................................19

9.0 CONCLUSION...................................................................................................................................19

LIST OF APPENDICES:

APPENDIX A: Section 4(f) Evaluation 

APPENDIX B: Environmental Commitments, Minimizations, and Best Management Practices 

APPENDIX C: Environmental Assessment Public Comments

APPENDIX D: Executed Section 106 Memorandum of Agreement 
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1.0 INTRODUCTION

The US Department of Transportation (USDOT) selected the City of Kalispell, Montana (City) to receive 

Fiscal Year (FY) 2015 Transportation Investment Generating Economic Recovery (TIGER) funding for 

construction of the Glacier Rail Park/Kalispell Core Area Development and Trail Project (Project). The 

Project is located in northwest Montana. The USDOT’s Federal Railroad Administration (FRA) is 

administering the TIGER grant. The Project is also receiving non-federal financial contributions from 

local government and private sources. 

The Project consists of two phases: construction of a new rail-served industrial park (Rail Park) and 

associated infrastructure improvements (Phase I); and removal of 1.6 miles of existing railroad track 

and conversion of the railroad right-of-way to a public-use trail (Kalispell Trail), and construction of up 

to three north-south street connections (complete streets) (Phase II). Details regarding the various 

components of Phase I and Phase II are provided in Section 3.3, and a map of the Project location is 

provided below.

Figure 1 Project Location Map

The proposed Rail Park would serve existing businesses that would relocate from their current 

locations in the Kalispell Core Area (Core Area) as well as any new businesses that may move into the 

new Rail Park. The Rail Park would provide current and future rail-served businesses an appropriately 

zoned, sized, designed, and located facility that is buffered from residences and other non-rail land 
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uses. Once constructed and operational, the new Rail Park would allow for the abandonment and 

removal of the existing railroad tracks, which currently bisects the community and has created safety 

and traffic issues owing to the number of rail/roadway at-grade crossings. Furthermore, these existing 

traffic and safety issues, combined with vacant and abandoned lots, have discouraged new businesses 

from moving into the Core area. Once abandoned, the railroad, which is currently owned by BNSF 

Railway Company, would be converted to an Americans with Disabilities Act (ADA)-compliant publicuse trail. The proposed Kalispell Trail would provide community connectivity and benefit all residents, 

including those that are economically disadvantaged and elderly, by providing improved and safer 

access to business districts, grocery stores, schools, child and elder care, healthcare, workforce training, 

and employment assistance, and would provide a safe option for non-motorized transportation (e.g., 

pedestrian, bicycle) for residents and visitors. The Project would allow for the redevelopment and 

economic revitalization in the center historic downtown area of Kalispell.

FRA and the City prepared an Environmental Assessment (EA) to analyze the potential impacts of the 

Project on the human and natural environment. The EA was prepared in accordance with the National 

Environmental Policy Act of 1969 (NEPA), as amended, 42 U.S.C. §§ 4321 et seq., its implementing 

regulations, 40 CFR parts 1500–1508, and FRA’s Procedures for Considering Environmental Impacts, 64 

FR 28545 (May 26, 1999).

FRA and the City circulated the EA for public review and comment between Friday, May 19 and Saturday, June 17, 

2017, to provide an opportunity for public review under NEPA, and related laws including Section 106 of the National 

Historic Preservation Act of 1966 and Section 4(f) of the U.S. Department of Transportation Act of 1966. 

Based on the analysis in the EA, FRA makes this Finding of No Significant Impact (FONSI) for the Build 

Alternative, described further below.

2.0 PURPOSE ANDNEED

The purpose 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. The proposed Rail Park would

provide for future economic development; allow connectivity to reach regional, national, and 

international markets; improve the efficiency of existing freight rail operations in the City; facilitate the 

revitalization of Kalispell’s historic downtown area to attract additional businesses, retail, and residential 

uses; and provide local and regional businesses with improved access to rail. The proposed Kalispell 

Trail would provide residents and visitors a safe and efficient method of non-motorized travel, improve 

traffic conditions by eliminating at-grade railroad crossings, and provide the Core Area with an 

opportunity to redevelop abandoned and vacant lots, potentially spurring economic development and 

community revitalization.

For the community of Kalispell, the proposed Project would address several needs, including correcting 

inefficient traffic operations and related safety issues, providing safe pedestrian and other nonmotorized travel options, providing a central location for business and economic diversity and growth 

for industrial rail users, and creating an attractive trail amenity for residents and visitors enabling 

community revitalization and infill at the heart of the City.
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3.0 DESCRIPTION OF ALTERNATIVES

3.1 Existing Conditions

The Project is located in Kalispell, Flathead County, Montana, and is part of the Great Northern Corridor 

Coalition (GNCC) umbrella of identified regional projects. The GNCC works to promote regional 

cooperation, planning, and shared project implementation to improve moving freight from Chicago 

through Wisconsin, Minnesota, North Dakota, Montana, and Idaho to ports in Washington and Oregon. 

The GNCC system of highways, railroads, and ports is vital to move American products to global markets 

and deliver necessary commodities to communities. The GNCC is working to strengthen this corridor in 

order to promote economic growth for neighboring communities and accommodate the demand for 

safe, efficient, and environmentally sound transportation services. Currently, because of a lack of a 

central rail hub in the region, grain farmers south of Polson, Montana, truck their grain to Lewiston, 

Idaho. A 2013 Market Analysis and Feasibility Study for the proposed Rail Park portion of the Build 

Alternative indicated the Rail Park would connect businesses within a 100-mile radius of Kalispell to the 

GNCC, as well as Canadian ports.

The Project is partially located in downtown Kalispell, which is also known as the Core Area, and is 

identified in the City’s 2012 Core Area Plan. The WATCO short line railroad is currently under contract 

with BNSF to provide rail service on the tracks serving the rail-served businesses in downtown Kalispell. 

WATCO currently provides service to CHS, Inc. (CHS), a farmer cooperative and agricultural business, and 

Northwest Drywall, and stores railcars at the end of the track and on siding track. These freight railroad 

lines through Kalispell are owned by BNSF and leased by WATCO. WATCO operates the railroad line that 

begins in Columbia Falls, Montana, and extends southwest to Kalispell. WATCO serves 12 customers at 

15 locations, primarily moving forest products and grain. 

There is no existing rail park or loading/unloading facilities within the Core Area; trains deliver directly to

CHS and Northwest Drywall, which are currently located in downtown Kalispell. There is a mainline with 

spurs serving the CHS fertilizer plant and grain elevator as well as short storage tracks. A private spur 

leads to Northwest Drywall. Train operations for the existing CHS facility within the Core Area consist of 

one locomotive to move 24 train cars during the busiest times of the year, which are in August and 

December. During these busy months, one to three full trains per month are moved onto the BNSF 

mainline from CHS. It takes approximately 8 hours to load 24 cars using the locomotive. The locomotive 

then travels south into Kalispell, taking approximately 1.5 hours to couple the railcars and move the 

train north out of town on the mainline. At non-peak times of year, CHS operations typically move 

single cars by trains two to four times per month. On average, 12 trains per month provide deliveries to 

the rail-served businesses in the Core Area. Anytime a 28-car train is loaded with grain at the CHS grain 

elevators in the Core Area, the train blocks three of the six north-south at-grade crossings in the City of 

Kalispell. If a 48-car train is brought to the Core Area, it blocks all six north-south crossings. There are 

more frequent trains, varying year to year, when CHS receives fertilizer for spring planting and in the fall 

during grain harvest. The CHS grain elevator is located in the Core Area. During a 4-week period, CHS 

receives 20 to 80 grain trucks per day. Grain trucks regularly park along 5th Avenue West North from 

West Center Street to US Highway 2 (Idaho Street) where they wait to unload at the elevator. 

The existing BNSF rail line bisects the City for 1.6 miles. Trains travel over US Highway 2 via a concrete 

bridge south of the location of the proposed Rail Park. The tracks continue through the downtown 

Kalispell Core Area where they split on the west side of Kalispell (west of South Meridian Street) before 

the line terminates. There are six existing at-grade railroad crossings through the Core Area: five cross 

two-lane city streets (Meridian Road, 5th Avenue West, 1st Avenue East, 3rd Avenue East, and 4th Avenue 
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East) and one crosses the four-lane US Highway 93 (Main Street). There are several roads that are 

currently dead-ended by the BNSF railroad tracks: 7th, 6th, 5th, and 2nd Avenues East-North and 1st, 2nd, 

3

rd, 4th, 6th, and 8th Avenues West-North. There are no designated bike lanes currently within the 

downtown area. The existing Great Northern Historical Trail (a rails-to-trail initiative) begins on the west 

side of Meridian Street. This recreational-use trail splits and runs south to Somers, west to Kila, and 

north along the Kalispell Bypass. 

3.2 No Build Alternative

Under the No-Build Alternative, the City would not construct the Project. Existing conditions associated 

with the current location and operation of the BNSF railroad in Kalispell would continue, including traffic 

delays, lack of facilities to allow pedestrians and bicyclists to safely traverse the City, and lack of a central 

location for rail-served businesses. The No-Build Alternative would not provide incentives for economic 

development, job creation, or revitalization of the Kalispell Core Area. The existing BNSF railroad line 

through downtown Kalispell would continue to divide the City and its residents and would not address 

the goals and objectives identified by the Kalispell Core Area Steering Committee in 2012. 

The No-Build Alternative was evaluated in the EA and provides a baseline against which to evaluate the 

potential impacts of the Build Alternative. 

3.3 Build Alternative

The EA analyzed one Build Alternative for the Project. The Project is comprised of two dependent 

phases. The first phase is the construction of the proposed Rail Park and associated infrastructure 

improvements. This first phase of the Project includes:

 A 40-acre industrial park constructed and operated on a former Brownfields site, which 

previously operated as a gravel, open-pit mine. The mine has since been reclaimed. An 

additional 3.38 acres of BNSF ROW adjacent to the Brownfield site would be required.

 A new rail line extended into the Rail Park from the mainline north of the Rail Park and 

traversing west from the existing BNSF line 1,000 feet. 

 Four parallel tracks within the Rail Park, totaling approximately 7,400 feet in total length, 

providing car storage, run around track, loading and unloading (i.e., team/transload track), and 

access to industrial business lots within the Rail Park. 

 Approximately 3,500 feet of new rail parallel to the east side of the existing BNSF mainline

outside the Rail Park, to total approximately 10,900 linear feet of new track. The additional 

3,500-foot side track allows engines to go around stationary rail cars on the mainline. 

 A section of track within the Rail Park, approximately 100 feet long, providing a team track for 

rail users not located in the Rail Park. This team track would be available to businesses to load 

or unload their own materials on and off railcars. 

 Improvement of the Flathead Drive/Woodland Park Drive and US Highway 2 intersection to 

include a four-way traffic signal, and removal of a median on Woodland Park Drive.

 Widening of the intersection at Flathead Drive to accommodate the turning radius and weight of 

trucks accessing the proposed Rail Park from westbound US Highway 2.
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 Construction of a new Private Road within the proposed Rail Park boundaries (Interior Road) to 

collector street standards1per Kalispell Design and Construction Standards (2009).

 Improvements to East Oregon Lane from the intersection with Montclair Drive, south/west to 

approximately 300 feet east of 10th Avenue East-North to meet Kalispell collector street 

standards.

 Widening of a total of 2,100 feet of Flathead Drive (US Highway 2 north to Montclair Drive) to 

two, 16-foot-wide lanes with gravel shoulders.

 Widening and addition of flashing lights at the Flathead Drive and East Oregon Lane railroad 

crossing. 

 Roadway improvements to Woodland Park Drive including removing the concrete 

channelization island, installing ADA-compliant ramps at each corner of the intersection, and 

narrowing and resurfacing the roadway.

 Adding and blending curb and gutter to where Montclair Drive ties into Flathead Drive.

 Extension of the City’s water and sewer utilities to the Rail Park to provide domestic water, fire 

flows, and sewage disposal. City water would be extended around the Rail Park, starting east of 

4

th Street under East Oregon Lane. The water main extension would continue under East 

Oregon Lane to Flathead Drive, to the interior private road, and finally to Whitefish Stage Road 

where the new water main would tie back into the existing water main. Approximately 8,600

feet of water main would be installed along with 17 fire hydrants that would provide at least 

3,000 gallons per minute for fire protection. City sewer service would also be extended to the 

proposed Rail Park. Gravity sewer mains would be installed under the interior private road and 

East Oregon Lane and would flow to a new lift station. The new lift station would be 

constructed at the intersection of East Oregon Lane and Montclair Drive. This lift station would 

pump wastewater along East Oregon Lane to its connection with the City’s existing sewer main. 

Approximately 4,600 feet of sewer and force main pipe would be installed. Natural gas, power, 

telephone, and fiber optic lines would also be extended to the Rail Park. 

 Construction of a new stormwater pond onsite, consisting of two cells: a sedimentation cell and 

a retention pond.

 Construction of a second new stormwater pond along East Oregon Lane to collect water from 

the remaining reconstructed section of East Oregon Lane. 

Once the proposed Rail Park is completed and operational, the proposed Kalispell Trail portion of the 

Project would be constructed. This second phase of the Project includes:

 Construction of 1.6 miles of public-use trail along BNSF ROW extending south from the Rail Park 

to Meridian Road. The 10-foot-wide, paved, public-use trail would be constructed by the City 

with an additional 7.5 feet of land (or more in areas where ROW is greater than 25 feet wide) 

available for landscaping on either side. The Kalispell Trail would be designed and constructed 

to be ADA compliant.

 

1 Kalispell collector street standards consist of two 17-foot-wide lanes, a 6-foot-wide boulevard, a 5-footwide sidewalk, and curb and gutter.
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 For pedestrian and bicyclist safety, warning or stop signs would be installed and curb bump outs 

would be constructed at the road crossings (Meridian Road, 5th Avenue Northwest, Main Street, 

and 1st, 3rd, and 4th Avenues Northeast).

 Up to three streets between Meridian Road and Woodland Park Drive that are currently deadended by the existing railroad tracks would be connected to increase efficiency of north-south 

traffic and pedestrian circulation. All streets proposed for connection (8th and 6th Avenues 

North-West and Woodland Park Drive to 7th Avenue East-North) are owned and maintained by 

the City. Roadway improvements (e.g., sidewalk and curb and gutter installation, utility 

extensions) where roadway already exists would be contained within existing City ROW. For all 

connections, additional ROW would be acquired from BNSF and from private landowners to 

construct the new portions of roadway to create the new north-south connections. The street 

connections would be designed to meet Kalispell local street standards, providing two 14-footwide driving lanes, a minimum 9-foot-wide boulevard separating the roadway from a 5-footwide sidewalk, tree plantings, and sewer and water extensions as needed. The City will make a 

final determination regarding sidewalk and bicycle lane configurations during final design of the 

Project.

 A new left turn lane would be needed on West Center Street at all three locations, which would 

be installed by restriping the pavement. Traffic control would include north-south stop control 

at the West Center Street intersection and east-west stop control for all other roads intersecting 

8th Avenue West-North and 6th Avenue West. There is the potential for future signalization, 

and a signal warrant study would be completed after the streets are connected.

BNSF, in coordination with the Surface Transportation Board (STB), is pursing the abandonment of rail 

service along the full length of track totaling 1.6 miles from milepost (MP) 1225.19 to MP 1226.79. FRA 

does not have an approval role over the abandonment of rail service. However, once the rail line is 

abandoned and the railbanking process is completed by the City and BNSF in coordination with STB, the 

FRA-administered TIGER funding would be used to remove 1.6 miles ((MP) 1225.19 to Meridian Road) of 

track and subsequently construct the proposed Kalispell Trail in the abandoned railroad ROW.

Figures 2 and 3 illustrate Phase I and Phase II of the Project.
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Figure 2: Glacier Rail Park Build Alternative Components
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Figure 3: Kalispell Trail Build Alternative Components
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4.0 SUMMARY OF EFFECTS

A detailed analysis of the potential impacts to Floodplains, Prime and Unique Farmlands, Wild and Scenic 

Rivers, Coastal Zones, Coastal Barriers, and property protected by Section 6(f) of the Land and Water 

Conservation Fund Act was not include in the EA because these resources are not present in the 

construction footprint (Project Area), or would not be directly or indirectly impacted by the proposed 

Project. 

The EA included a detailed analysis of the potential environmental effects of the Build Alternative. That 

analysis is incorporated herein by reference and summarized below. Specific effects are identified by resource 

and by Project component (Rail Park or Kalispell Trail), where appropriate. The Study Areas for utilized for 

the analyses in the EA consisted Project Area and additional areas that could be affected directly or 

indirectly by the Project. The Study Areas varied based on the resource being analyzed and are defined 

under each resource section in the EA.

4.1 Air Quality

There may be temporary dust (particulate matter [PM]10 and PM2.5) and emissions during construction 

activities for the Rail Park and Kalispell Trail. The City would minimize any potential construction impacts 

by implementing the measures described in Appendix B.

Operation of the Rail Park is not expected to increase the frequency or severity of National Ambient Air 

Quality Standards (NAAQS) emissions or delay timely attainment of the NAAQS and, would and would 

not exceed the de minimis thresholds in the conformity regulations. The purpose of the Rail Park is to 

relocate and improve the efficiency of existing freight rail operations in Kalispell, which would have a 

positive impact on air quality. 

The Kalispell Trail is not expected to contribute to PM10 emissions after construction has been 

completed. Operation of the Kalispell Trail, which would be a recreational resource intended for nonmotorized use, would not increase the frequency or severity of NAAQS emissions or delay timely 

attainment of the NAAQS, and would not exceed the de minimis thresholds in the conformity 

regulations. Furthermore, the Kalispell Trail could potentially benefit air quality by providing nonmotorized transportation options to Kalispell residents and visitors.

4.2 Water Quality and Water Resources, including Wetlands

There are no wetlands present within the Project Area. Construction activities for the Rail Park and Trail 

may temporarily degrade surface and groundwater quality due to sedimentation and soil erosion, or 

surface runoff carrying contaminants through the water table, which can infiltrate the soil and/or be 

carried by stormwater and may contaminate surface waters and groundwater reserves. The City would 

minimize any potential construction impacts by adhering to the measures described in Appendix B.

Operation of the Rail Park would include two onsite stormwater retention systems (to be constructed as 

part of the Project). Retention ponds allow for additional biological interactions that aid in improving water 

quality and would minimize any stormwater-related water quality impacts.

Although the trail would be paved, vegetation would be planted on either side of the trail to allow storm 

water runoff to infiltrate. Therefore, the Kalispell Trail portion of the Project, once constructed, would not 

impact water quality or water resources, including wetlands.
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4.3 Ecological Resources, Threatened & Endangered Species, Eagles, and Wildlife, Fish and 

Vegetation

Neither the Rail Park nor Kalispell Trail would result in a significant effect on ecological resources or 

threatened and endangered species. Although species listed under the Endangered Species Act (ESA) are 

present in Flathead County, there would be no effect to the Canada lynx (Lynx canadensis), bull trout 

(Salvelinus confluentus), or yellow-billed cuckoo (Coccyzus americanus) because no suitable habitat for 

these species is present in the Study Area. No active eagle nests are present in the Study Area. The 

Montana Natural Heritage Program did not identify any State Species of Concern in the Study Area. 

Activities associated with the construction and operation of the Rail Park and Kalispell Trail may result in 

the disturbance or displacement of terrestrial wildlife species; however, animals present in the Study Area 

are likely adapted to urban habitat and human disturbance. In the context of the existing urban setting of 

development, vehicular traffic, and human activity, the effects on wildlife would be minimal. Any 

potential construction impacts would be minimized by adhering to the measures described in Appendix B.

Operational activities associated with the Rail Park could result in wildlife injury or death from operating 

equipment or vehicles; however, the potential for such impacts currently exists with the existing operation 

of the railroad and vehicular traffic in the urbanized area. The City would minimize these impacts by 

implementing the measures described in Appendix B.

The operation of the Kalispell Trail may provide urban habitat for wildlife through the addition of 

landscaping and urban plantings that are not currently present along the railroad ROW.

4.4 Energy and Climate Change

There would be no substantial change in short- or long-term fuel consumption, energy use, or greenhouse 

gas (GHG) emissions in Montana from construction or operation of either portion of the Project. 

Construction of the Rail Park and Kalispell Trail would temporarily increase energy consumption used by 

heavy construction machinery in the form of fuel and electricity or battery power of smaller tools. The City 

would minimize any potential construction impacts by implementing the measures described in Appendix 

B.

Operation of the Rail Park would not increase energy use from current levels, as the number of trains 

servicing/serviced by the new Rail Park would not increase from levels currently operating in Kalispell. 

Due to the shorter distance trains would travel for deliveries and pick-ups and the reduction in use of 

trucks and other rail shipment routes for freight in northwest Montana, energy use may decrease from 

current levels.

Operation of the Kalispell Trail would limit consumption of fuel by providing non-motorized transportation 

options which do not currently exist, thereby eliminating idling traffic waiting for trains to pass, and 

increasing traffic efficiency by completing up to three street connections across the Kalispell Trail. The 

Kalispell Trail could result in a decrease in overall emissions and energy use in the Study Area.

4.5 Noise

Construction of the Rail Park and Kalispell Trail would result in temporary increases in noise above baseline 

levels.

The noise analysis conducted for operation of the Rail Park used the Federal Transit Administration (FTA) 

guidance and predicted two moderate noise impacts primarily at the East Oregon Lane/Flathead Drive 

intersection of the Rail Park. No severe impacts are anticipated. The City would minimize any potential 
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impacts by implementing the measures described in Appendix B.

Operation of the Kalispell Trail would follow the cessation of freight rail operations and truck 

transportation through the Kalispell Core Area. This would result in a reduction in noise from current 

levels. 

4.6 Vibration

The vibration resulting from Project construction and operation would be below FTA vibration impact 

thresholds and therefore neither the Rail Park nor Kalispell Trail would result in significant vibration 

impacts. 

4.7 Hazardous Materials

The proposed Rail Park, which is on the site of a former gravel pit, has been remediated in accordance with 

Montana Department of Environmental Quality requirements. Ground clearing activities have the 

potential to expose concealed contaminated areas and small quantities of hazardous materials used

and/or hazardous wastes generated during construction. Short-term effects may occur during 

construction of the Rail Park and/or Kalispell Trail if contaminated soil, sediment, or groundwater are 

encountered; however, the City would minimize the impacts by implementing the measures described in 

Appendix B. 

Implementation of the complete street connection on 6

th Avenue West-North as part of the Kalispell Trail 

portion of the Project may impact a fueling station and possibly underground tanks. If, as the City 

advances the design of the Kalispell Trail portion of Project, the potential for encountering hazardous 

materials is identified, the City would conduct a Phase I Environmental Site Assessment (ESA). Depending 

on the results of the Phase I ESA, the City would decide whether to modify the Project design in order to 

avoid impacts or to continue with the design and further characterize site and mitigate impacts as 

appropriate. Mitigation measures are described in Appendix B. 

4.8 Land Use 

No short-term effects on land use are anticipated from construction activities associated with the Project. 

Neither the operation of the Rail Park nor the Kalispell Trail would result in significant impacts to land use, 

as the Project is consistent with adopted land use policies. The Rail Park would be constructed on the site 

of a former abandoned gravel pit in an area that is already zoned for industrial use. A change in land use 

would occur for the Kalispell Trail portion of the Project, consisting of the conversion of 1.6 miles of 

industrial-classified railroad to a recreational trail and green space. After construction, the Project will 

continue to be compatible with surrounding land uses. 

4.9 Cultural and Historic Resources

There are no properties listed or eligible for listing on the National Register of Historic Places (NRHP) in the 

direct or indirect Area of Potential Effects (APE) for the Rail Park portion of the Project. Therefore, 

construction and operation of the Rail Park would not impact historic properties.

The removal of the BNSF-owned tracks to construct and operate the proposed Kalispell Trail would have a 

direct adverse effect on the NRHP-eligible Great Northern Railroad (GNRR) and an indirect adverse effect 

on three NRHP-listed architectural properties adjacent to the railroad ROW that were historically served 

by the railroad.
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A Section 106 Memorandum of Agreement (MOA) was executed among FRA, the City, and the Montana 

State Historic Preservation Officer on July 6, 2017. The MOA specifies mitigation measures to resolve the 

adverse effects of the Build Alternative on the GNRR, the Kalispell Flour Mill, the Great Northern Railway 

Depot, and the Flathead Wholesale Grocery. The Northwest Montana Historical Society, the Kalispell

Business Improvement District (KBID), the Flathead County Economic Development Authority, and STB

were additional consulting parties in the development of the MOA. The executed MOA is included in 

Appendix D.

4.10 Section 4(f) Resources

The construction and operation of the proposed Rail Park would not result in any impacts to Section 4(f)-

protected resources. 

The construction and operation of the proposed Kalispell Trail would result in an unavoidable use of one 

Section 4(f)-protected property, the NRHP-eligible GNRR, through removal of the rail infrastructure such as 

track, ties, and ballast. The mitigation included in the MOA represents all possible planning to minimize 

harm to this Section 4(f)-protected resource. See Section 4.9 and the executed MOA for more 

information. FRA submitted its 4(f) analysis regarding this unavoidable use of the GNRR to the 

Department of the Interior (DOI) on May 23, 2017. In a response letter dated June 20, 2017, DOI 

concurred that there is no feasible or prudent alternative to the Section 4(f) “use” of the GNRR and that, 

through execution of the MOA, all measures will have been taken to minimize harm to Section 4(f)-

protected historic properties. 

In addition, while not currently anticipated based on current design, the construction of the proposed 

Kalispell Trail may have a de minimis impact to Depot Park due to temporary occupancy (i.e., temporary 

easement, access, and/or construction staging). FRA received written concurrence with its proposed de 

minimis impact determination on May 24, 2017 from the Parks Director, Kalispell Parks and Recreation, 

who is the official with jurisdiction over Depot Park. FRA, the City, and the Parks Director identified

mitigation measures to address the potential temporary construction-period impacts to Depot Park. The 

City of Kalispell will implement the minimization measures specified in FRA’s May 23, 2017 letter to the 

Park Director.

FRA’s final Section 4(f) Determination, including copies of correspondence between FRA and the officials 

with jurisdiction, are included in Appendix A. 

4.11 Socioeconomics and Environmental Justice

The Project has been evaluated pursuant to the requirements of Executive Order 12898 – Federal Actions 

to Address Environmental Justice in Minority Populations and Low-Income Populations, and USDOT Order 

5610.2(a). Neither the Rail Park nor Kalispell Trail would result in significant socioeconomic impacts or 

disproportionate adverse effects to environmental justice communities. There may be minor, temporary, 

and localized impacts to surrounding residential communities or commercial areas during construction of 

the Project; impacts would be localized in the form of noise above ambient levels, visual disturbance from 

the presence construction equipment, and air emissions from construction equipment. Pedestrians and 

vehicle traffic may experience temporary delays during construction of both the Rail Park and Kalispell 

Trail. With regard to the Kalispell Trail, businesses may experience impacts due to construction of up to 

three complete street connections, which may require property acquisitions and/or relocations. The City 

would minimize any potential construction impact by implementing the measures described in Appendix B.
Glacier Rail Park/Kalispell Core Area

Development and Trail Project

Finding of No Significant Impact

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There are no environmental justice populations within the Study Area. The Project would not create 

barriers to access or use by elderly or disabled persons. Benefits to community cohesion, safety, and 

access to goods and services would result from the removal of the BNSF-owned tracks and the cessation of 

freight trains passing through the Study Area and the resulting reduction in traffic congestion. Businesses 

may experience temporary adverse impacts due to relocation of the rail services, such as added staff hours

necessary to move inventory and equipment from their existing locations to the new lots in the Rail Park.

Improved economic and visual appeal and access along the Kalispell Trail could increase and incentivize 

the establishment of new businesses. 

4.12 Aesthetics and Visual Resources 

Neither the Rail Park nor Kalispell Trail would result in significant aesthetic or visual impacts. Construction 

of the Project would impact visual quality in the Study Area temporarily due to the presence and operation

of construction equipment. 

Rail tracks placed within the Rail Park may provide new views of train cars for viewers looking in from the 

east along Flathead Drive or west from Whitefish Stage Road. In addition, there would be views of new 

infrastructure associated with business operations in the Rail Park, such as buildings, warehouses, and

grain bins. However, due to the existing industrial and urban setting of the Rail Park location, which 

previously operated as a gravel pit, the addition of buildings and infrastructure to the Rail Park would not 

change the overall feel and setting of the surrounding viewshed compared to existing or previous 

conditions.

Removal and conversion of the existing railroad tracks into a public-use recreational trail and landscaped 

green space would eliminate trains from passing through the Core Area of Kalispell and provide a more 

visually appealing setting compared to existing conditions, which include numerous vacant/abandoned lots 

adjacent to an unvegetated railbed. 

4.13 Traffic and Transportation

Neither the Rail Park nor the Kalispell Trail would result in significant transportation impacts. It is likely 

that both phases of the Project would cause temporary traffic delays and detours during construction. The 

City would minimize any potential construction impacts by implementing the measures described in 

Appendix B.

Operation of the Rail Park will eliminate grain trucks from having to travel through the Core Area, which 

would relieve traffic congestion. Furthermore, eliminating trains from traveling through the Kalispell Core 

Area would eliminate traffic delays and queues at at-grade crossings and along street corridors. The 

operational Rail Park would increase the ability to access rail for long-haul shipments of grain instead of 

truck shipments, which would reduce truck traffic on the regional highway transportation systems.

Operation of the Kalispell Trail would have a beneficial impact on transportation within the Study Area and 

Kalispell community by providing a safe option for non-motorized travel. In addition, operation of the 

Kalispell Trail will relieve traffic congestion by providing up to three new complete through-street 

connections within the Study Area. Any resulting intersection traffic impact would be minimized by 

adhering to the measures described in Appendix B.

4.14 Relocations and Displacements

The Rail Park would require acquisition of one parcel of commercial property (land only, no buildings) in 

order to accommodate the expansion of Flathead Drive and installation of a traffic signal at Flathead Drive, 
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Development and Trail Project

Finding of No Significant Impact

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Woodland Park Drive, and US Highway 2. Temporary impacts to the business owner would occur from 

inventory having to be rearranged and consolidated into a slightly smaller lot, and traffic access from US 

Highway 2 to Flathead Drive would be temporally restricted during construction. However, access to the 

commercial property from US Highway 2 would remain unchanged following construction of the Rail Park.

The City would minimize any potential impacts by implementing the measures described in Appendix B.

Construction of up to three complete street connections across the Kalispell Trail would require buyouts of 

several businesses, lease modifications, and/or ROW acquisitions. Temporary impacts would occur to the 

two existing rail-served businesses as they move from their current locations to the new Rail Park; these 

impacts may include extra hours of staff work and/or overtime, and/or consolidation of inventory. The 

City would minimize any potential impacts by implementing the measures described in Appendix B.

4.15 Public Health and Safety

Construction of the Rail Park and Kalispell Trail would require the use of heavy equipment and 

construction vehicles within the Project Area, which could present a potential safety risk to construction 

workers as well as to the public if unauthorized persons were to enter the work sites. There may be

temporary degradation of air quality due to the generation of fugitive dust and emissions from 

construction equipment and vehicles. The City would minimize any potential construction impacts by 

implementing the measures described in Appendix B.

Operation of the Rail Park would result in increased safety for the public by eliminating the risk of 

pedestrian/vehicle-train collisions within the Kalispell Core Area. The relocation of existing rail operations 

to an area away from the population center would also benefit public health by reducing localized 

emissions.

Operation of the Kalispell Trail would result in increased safety and access for non-motorized and 

motorized travelers by removing the six existing at-grade railroad crossings.

5.0 INDIRECT EFFECTS

Indirectly, the Project may increase community growth and development. The Kalispell Trail would

provide an attractive community area to establish businesses that would be more efficiently and safely 

accessed by vehicular and non-motorized transportation compared to current conditions; this could 

increase jobs and economic opportunities within the community. The Rail Park may also incentivize new 

industrial businesses to establish within Kalispell, which could improve the local economy and attract 

people to move to the City or immediate area for employment. This intensification of future development

could result in ambient effects, such as additional lighting, energy use, grading/soils disturbance, and 

increased impervious surfaces. Noise and vibration impacts throughout the Core Area would indirectly 

decrease from the removal of the existing rail tracks and elimination of associated freight train traffic.

Localized impacts to air quality could result from future business operations of tenants that move to the 

Rail Park, especially if the number of rail-served businesses increases from the current number (the 

maximum capacity of the Rail Park is four business locations; currently, two existing businesses are 

expected to relocate to the Rail Park). While the number of cars per train may increase, the number of 

locomotives is not expected to increase compared to existing conditions. Furthermore, if the number of 

rail-served businesses increases in the future, business operations are not expected to increase the 

frequency or severity of NAAQS emissions or delay timely attainment of the NAAQS and would not exceed 

the de minimis thresholds in the conformity regulations. Businesses leasing within the Rail Park would be 

required to obtain individual MTDEQ- and EPA-required air quality permits, as needed. Overall, the Rail 

Park and Kalispell Trail would have a beneficial impact on air quality in the Core Area by relocating train 
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Development and Trail Project

Finding of No Significant Impact

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and truck traffic to a less populated, industrial-zoned area on the outskirts of the City, away from 

residences and other land uses; thus benefiting public health by reducing localized air pollutant emissions. 

Train and truck traffic would be more efficient at the Rail Park. Trains would travel a shorter distance 

compared to existing conditions in order to serve customers because the proposed Rail Park location is 

closer to the BNSF mainline and all rail-served customers would be consolidated into one location. In 

addition, trucks would have a more direct route to each business and would use a signaled intersection 

designed to handle truck traffic. Improvements to traffic flow and reduction in vehicle idling would 

positively impact local air quality.

6.0 CUMULATIVE EFFECTS

As described in the impact analysis in the EA, the Build Alternative would not result in any direct or 

indirect significant adverse impacts to any resource. Therefore, no significant cumulative impacts are 

anticipated.

7.0 PUBLIC INVOLVEMENT

The proposed Project is the result of a major community planning effort known as the Kalispell Core 

Area Plan (Plan), funded by a Brownfields Area Wide Planning Pilot Program Planning Grant from the 

Environmental Protection Agency in 2010. The development of the Plan and associated community 

outreach extended for over two and a half years. The Plan focused on an area that contained 450 

property owners. Of those 450, 140 property owners were interviewed by City staff, representing 60% 

of the plan area land ownership. Six newsletters were mailed out to all 450 property owners, elected 

officials, and media outlets during the planning process in 2011-2012. Open houses were held in March 

and December 2011 and August 2012. Core Area Steering Committee public meetings were held on 

April 10 and 25, May 23, and June 26, 2012. A booth at the county fair was staffed for five days in 

August 2012. In August 2012, the City presented the Plan to 214 people at the monthly Kalispell 

Chamber of Commerce Luncheon. Public access TV ran the Kalispell Chamber of Commerce 

presentation for one month after the luncheon. Televised Planning Board hearings were held in 

September and October 2012 and were repeated on the public access channel for one month. 

Televised City Council hearings were held in November and December 2012 and were repeated on 

public access television for one month. 

After the City Council adopted the Plan in December 2012, the proposed Glacier Rail Park and Kalispell 

Core Area Development and Trail Project has been the focus of 12 public presentations by City staff to 

such organizations as the Kalispell Chamber of Commerce, Rotary, Leadership Flathead, Kalispell Lions, 

KBID, Kalispell Development Association, and Brown Bags at the Community College, Kalispell School 

District 5, and the Kalispell Urban Renewal Association over the five years between 2012 and 2017. 

With regard to the NEPA process, communication and coordination was initiated through an early 

scoping package sent by the City of Kalispell to Federal, State, and local resource and regulatory 

agencies and other interested parties on May 23, 2013 and May 8, 2015 to ensure that social, 

economic, and environmental effects were considered in the development of the Build Alternative. This 

scoping package included information on the proposed Project and solicitation for comments or 

concerns. Twenty responses to both scoping packages were received by the conclusion of the scoping 

periods from May 23, 2013 to June 23, 2013 and May 8 to May 29, 2015. The comments provided 

valuable insight into the evaluation of potential environmental impacts. The comments were 

considered where appropriate within the environmental impact categories analyzed in the EA. 

The EA was made available for a 30-day public review and comment period, to satisfy the public 

Glacier Rail Park/Kalispell Core Area

Development and Trail Project

Finding of No Significant Impact

July 2017

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FRA Contact:

Laura Shick

Supervisory Environmental Protection Specialist

Federal Railroad Administration

1200 New Jersey Ave, SE

Washington, DC 20590

(202) 366-0340

List of Preparers:

Katharine Thompson, City of Kalispell

Mark Rohweder, KLJ Consultants

Jessica Aasand, KLJ Consultants

Mark Hardgrove, Planning Innovations, Inc.
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Glacier Rail Park/Kalispell Core Area

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APPENDIX A: Section 4(f) Evaluation 

GLACIER RAIL PARK/KALISPELL CORE AREA DEVELOPMENT AND TRAIL PROJECT

KALISPELL, FLATHEAD COUNTY, MONTANA

Section 4(f) prohibits federal transportation agencies from approving a project that uses land from publicly 

owned parks, recreational areas, wildlife and waterfowl refuges, or public and private historical sites 

unless:

(1) the agency determines that there is no feasible and prudent avoidance alternative to the use 

of that land and the project includes all possible planning to minimize harm to the Section 4(f)-

protected property resulting from such use, or 

(2) the agency determines that the use of the property would have a de minimis impact. 

The use of a Section 4(f) property occurs when the property is permanently incorporated into the 

transportation project through a taking of the land, when it is temporarily occupied, or when a project’s 

proximity impacts are so severe that the activities, features, or attributes that qualify the property for 

protection under Section 4(f) are substantially impaired. The latter scenario is known as a constructive 

use. Substantial impairment occurs when the protected activities, features, or attributes of the Section 4(f) 

property are substantially diminished. This generally means that the value of the resource, in terms of its 

Section 4(f) purpose and significance, would be meaningfully reduced or lost. A determination on 

constructive use takes into account mitigation measures that can reduce the proximity impacts to a 

Section 4(f) property.

FRA may determine that an impact to a Section 4(f) property is de minimis if:

(1) The proposed project would result in a Section 106 finding of no adverse effect on a historic 

property or no historic properties affected and FRA receives written concurrence from SHPO on its 

determination; or 

(2) The proposed project would not adversely affect the activities, features, or attributes 

qualifying a park, recreation area, or refuge for protection under Section 4(f) and FRA receives 

written concurrence from the official with jurisdiction after providing the public with notice and an 

opportunity to comment.

Section 4(f) properties located within the Study Area were identified and described in the EA. Any Section 

4(f) use, or lack of use, determined for each property was also summarized in the EA. Historic properties 

are considered Section 4(f) resources, and therefore the field investigations performed by Rabbitbrush 

Archeological Services and Historical Discoveries to identify National Register of Historic Places (NRHP)-

eligible or listed properties were used in the identification of Section 4(f) resources. The other types of 

Section 4(f) resources, such as public parks and recreation areas, were identified through internet 

searches, mapping, and field visits. 

Because FRA has determined a Section 4(f) use would result from the Project, the relevant portions of the 

EA are incorporated into this analysis, which serves as FRA’s final Section 4(f) determination. The analysis 

below includes the required assessment of feasible and prudent avoidance alternatives and measures to 

minimize harm. FRA makes its final Section 4(f) determination after the required consultation has 

occurred with the officials with jurisdiction over the 4(f)-protected resources and the US Department of 

the Interior (DOI). 
Glacier Rail Park/Kalispell Core Area

Development and Trail Project

Finding of No Significant Impact

July 2017

Page 23

Depot Park 

Depot Park is owned and managed by, and classified as a special use, by Kalispell Parks and Recreation. 

Uses that fall into this category include boat ramps, botanical gardens, memorials, community gardens, or 

sites occupied by buildings. The NRHP-listed Great Northern Railway Depot is located within Depot Park. 

Depot Park sits on 3.7 acres and is used a public gathering area in the summer with a gazebo, sidewalks 

and benches, sculptures, and a Veterans’ Memorial. The proposed Kalispell Trail would bisect a portion of 

Depot Park where the existing BNSF-owned and operational railroad tracks are currently located. The 

existing tracks and subsequent train traffic impede pedestrian movements, compromise park user 

experience, and create safety hazards. Events held at the Great Northern Railway Depot building or park 

gazebo are subject to interruptions caused by the noise and vibration of passing freight trains.

Historic Properties

Section 4(f) affords protection to “historic sites,” which are historic properties, including archaeological

sites, that are listed or eligible for listing on the NRHP. Such sites are not required to be open to the public 

to be considered a Section 4(f) property. Refer to Table 1 below for a list of historic properties in the 

proposed Project’s APE that were identified as part of the Section 106 process and described in Section 

3.15 of the EA.

Table 1: Section 4(f) Historic Sites within APE

SITE TYPE/NAME NRHP STATUS RELATIONSHIP TO APE EFFECT 

DETERMINATION

Historic Railroad – Great 

Northern Railway

Eligible Direct APE Adverse Effect

East Side Historic District 

(Woodland Park only) (a)

Listed Indirect APE No Adverse Effect 

Historic Gas Station –

Continental Oil Warehouse 

and Garage

Eligible(b) Indirect APE N/A

Historic Commercial 

Development – Flathead 

Wholesale Grocery

Listed Indirect APE Adverse Effect 

Historic Railroad, Stage 

Route, Travel – Great 

Northern Railway Depot

Listed Indirect APE Adverse Effect

Historic Commercial 

Development – Kalispell 

Flour Mill

Listed Indirect APE Adverse Effect

(a) Discussed separately as a Section 4(f) resource in Section 3.16.2 of the EA.

(b) Recommended by FRA that this resource is no longer eligible for listing in the NRHP due to compromised 

integrity of buildings; MTSHPO concurred.

Impacts to Depot Park and Historic Properties

FRA determined that Phase II of the proposed Project (construction of the Kalispell Trail) would adversely 

affect four historic properties. The Montana State Historic Preservation Officer (MTSHPO), the official with 

jurisdiction over these Section 4(f)-protected historic sites, concurred with FRA’s determination in a letter 

dated March 14, 2017. However, only one of these historic properties, the Great Northern Railroad, would 

be directly adversely affected which constitutes a “use” under Section 4(f). Phase II of the proposed 
Glacier Rail Park/Kalispell Core Area

Development and Trail Project

Finding of No Significant Impact

July 2017

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Project would have an indirect adverse effect on three historic architectural properties and an effect, but 

no adverse effect, on one historic district; however, these indirect effects are not of a nature that would 

result in a constructive use under Section 4(f). While current construction plans for the Kalispell Trail do 

not require construction activities outside of the existing BNSF-owned ROW, FRA has identified the 

potential for a temporary occupancy during construction (e.g., construction staging activities and/or site 

access) in a small portion of Depot Park. FRA has determined that even if such temporary occupancy is 

required, it would be a de minimis impact to Depot Park. 

Additional information to support FRA’s 4(f) determinations is provided below. 

Construction Impacts

The direct adverse effect to the Great Northern Railroad through removal of the tracks and conversion of 

the former rail line to a public, recreational use trail would constitute a Section 4(f) use of this NRHPeligible property. As described above, the current construction plans do not require any construction 

activities outside of the existing BNSF-owned ROW that currently bisects Depot Park. However, it is 

possible the City’s contractor would require temporary occupancy of a portion of Depot Park (i.e., access, 

temporary construction easements, and/or construction staging for removal of the rail and improvements 

to construct the Kalispell Trail). If it is necessary, such a temporary occupancy is anticipated to result in a 

de minimis impact to this Section 4(f) resource. FRA expects that all permanent installations necessary for 

the new Kalispell Trail would remain in the abandoned railroad ROW (to be acquired by the City) and no 

permanent incorporation of Depot Park lands would occur. Most events and activities occur on the south 

side of the park between the Depot Building and East Center Street. The railroad bisects a small portion of 

the park on the northern end, as shown in the figure below.
Glacier Rail Park/Kalispell Core Area

Development and Trail Project

Finding of No Significant Impact

July 2017

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The proposed Project would also result in indirect adverse visual effects to the NRHP-listed Kalispell Flour 

Mill, the Great Northern Railway Depot, and the Flathead Wholesale Grocery through the removal of the 

adjacent railroad tracks, which would remove the historically-important association between these three 

architectural properties and the railroad that once served them. However, these proximity impacts would 

not be so severe that the activities, features, or attributes that qualify the three historic properties for 

protection under Section 4(f) would be substantially impaired. The value of these resources, in terms of 

their Section 4(f) purpose and significance, would not be meaningfully reduced or lost. As described in 

Section 3.15 of the EA, Section 4.9 and 4.10 of the FONSI, and the executed Section 106 Memorandum of 

Agreement (MOA) included in Appendix D of the FONSI, interpretive signage would be installed along the 

proposed Kalispell Trail to highlight the historic importance of the railroad that previously existed there. 

Furthermore, the abandoned railroad ROW would remain as open space, with no new development that 

would encroach upon or block views to/from the historic buildings. Therefore, the proposed Project 

would not result in a constructive use of the Kalispell Flour Mill, the Great Northern Railway Depot, or the 

Flathead Wholesale Grocery.

Operational Impacts

As described above, the construction, and subsequent operation, of the proposed Kalispell Trail would 

have a direct adverse effect on the Great Northern Railroad through the cessation of rail operations and 

removal of the rail infrastructure (rail, ties, ballast, etc.), thereby removing the visual evidence of the 

historic transportation function that once contributed to the development and prosperity of Kalispell. This 

direct adverse effect would constitute a use under Section 4(f). As described below, FRA has determined 
Glacier Rail Park/Kalispell Core Area

Development and Trail Project

Finding of No Significant Impact

July 2017

Page 26

there are no feasible and prudent avoidance alternatives to the use of this Section 4(f) property and has 

identified, through the Section 106 process, measures to minimize harm to the property.

An integral part of the Purpose and Need for the proposed Project is the “rails-to-trails” component, which 

is contingent upon the abandonment of rail service and removal of a portion of the rail line. Without this 

removal and conversion of the rail line, the Project would not meet its Purpose and Need described in 

Chapter 1 of the EA. The proposed Project would address several needs for the community of Kalispell, 

including correcting inefficient traffic operations, eliminating roadway/railroad at-grade crossings that 

pose both a safety hazard and create traffic congestion, providing safe non-motorized travel options, 

providing a central location for business and economic diversity and growth for industrial rail users, and 

creating an attractive public-use recreational trail for residents and visitors, enabling community 

revitalization and infill at the heart of the City. None of these needs would be met without the 

abandonment and conversion of the existing BNSF rail line to the proposed Kalispell Trail. 

From a safety perspective, the current location of the existing railroad tracks causes several dead-ended 

streets traveling north-south, creating traffic back-up and six unsafe at-grade railroad crossings. The 

current location of the railroad tracks and rail-served business (CHS) causes large grain trucks to back up 

onto 5th Avenue West North while waiting to load and unload, thereby creating safety concerns for other 

motorists trying to pass stationary grain trucks in the opposite traffic lane. In addition, these large grain 

trucks clog local roadways in the Core Area that are not built for heavy truck traffic or wide turning radii, 

especially in the height of the tourism season which coincides with grain harvest. Currently, options for 

non-motorized travel are lacking in the Core Area. Pedestrians and bicyclists unsafely navigate streets that 

do not have designated pedestrian crossings or bike lanes.

The conversion of the historic Great Northern Railroad is necessary to meet the Project’s Purpose and 

Need and FRA has determined there are no feasible and prudent avoidance alternatives that could also

achieve the Project’s Purpose and Need. In addition, taking the preservationist purpose of Section 4(f) 

into account, while the rail-to-trail conversion would result in an adverse effect to the historic railroad, it 

would be converted into a public-use, recreational resource and would therefore continue to be 

considered a Section 4(f) resource. 

Mitigation for Impacts to 4(f)-Protected Historic Properties

To identify measures to minimize harm to the Great Northern Railroad, FRA has consulted with MTSHPO, 

which is the official with jurisdiction over 4(f)-protected NRHP-listed or eligible properties. FRA and 

MTSHPO, as well as additional consulting parties that included the City, the Northwest Montana Historical 

Society, the Kalispell Business Improvement District, the Flathead County Economic Development 

Authority and the Surface Transportation Board, consulted pursuant to Section 106 of the National Historic 

Preservation Act to resolve the adverse effects of the proposed Kalispell Trail to historic properties, and 

executed an MOA on July 6, 2017. Mitigation measures stipulated in the MOA include: retaining a small 

portion of the tracks in place near the Great Northern Railway Depot within Depot Park, which would 

preserve actual track at the most appropriate location, and provide a location for placement of a rail car in 

the future if it is desirable by the community and feasible to obtain; installation of interpretive signage at 

six locations along the proposed Kalispell Trail that would highlight the historic importance of the railroad 

to the development and prosperity of Kalispell and the region; and planting of cherry trees interspersed 

along the proposed Kalispell Trail with emphasis in the location of the former Flathead Lake Cherry 

Growers Association Warehouse at 20 North Main Street, to commemorate the area’s history of 

agriculture, particularly cherry orchards along Flathead Lake to the south, and the impact of this product 

on the area which provided greater economic diversity for the community of Kalispell. 
Glacier Rail Park/Kalispell Core Area

Development and Trail Project

Finding of No Significant Impact

July 2017

Page 27

Opportunity for Public Review & DOI Review 

The EA, which included the draft Section 106 MOA as an appendix, was circulated for a 30-day public 

comment period from May 19 to June 17, 2017. No public comments regarding the draft MOA or 

potential impacts of the Project on Section 4(f)-protected properties were received. In addition, FRA 

submitted its proposed Section 4(f) determination to DOI on May 23, 2017. In its response letter dated 

June 20, 2017, DOI concurred that there is no feasible or prudent alternative Build Alternative, which 

would result in the unavoidable use of the GNRR, and the executed MOA would minimize harm to the 4(f) 

resource. The executed MOA is included in Appendix D of the FONSI. Copies of correspondence between 

FRA and DOI are included in this appendix. 

Finding of de minimis Impact-Depot Park

In a letter and email on May 23, 2017, FRA notified the City of Kalispell’s Parks Director, the official with 

jurisdiction over Depot Park, of FRA’s proposed de minimis impact determination regarding the park. 

Circulation of the EA for a 30-day public review and comment period served as the public’s opportunity to 

comment on FRA’s proposed de minimis impact determination regarding Depot Park; no public comments 

regarding Depot Park were received.

The City’s Parks Director provided written concurrence with FRA’s proposed de minimis impact 

determination on May 24, 2017, a copy of which is included in this appendix. The City and its construction 

contractor are required to implement the measures specified in FRA’s May 23, 2017 letter when removing 

the rail line and constructing the Kalispell Trail. These measures include restricting construction activities

to Monday – Friday between 7:00 am to 7:00 pm, notifying the Department of Parks and Recreation five 

business days prior to the commencement of the rail removal and trail construction activities, and, if 

desired and at the request of the Department of Parks and Recreation, avoiding carrying out construction 

activities during times that events are scheduled in Depot Park.
Glacier Rail Park/Kalispell Core Area

Development and Trail Project

Finding of No Significant Impact

July 2017

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APPENDIX A Continued – Copies of Section 4(f) Correspondence
Glacier Rail Park/Kalispell Core Area

Development and Trail Project

Finding of No Significant Impact

July 2017

Page 29

APPENDIX B: Environmental Commitments, Minimizations, and Best Management Practices for 

Glacier Rail Park/Kalispell Core Area Development and Trail Project

The environmental commitments, best management practices (BMPs), and minimization

measures listed in the table below include practices, techniques, methods, processes, and

activities commonly accepted and used throughout the engineering, construction and railroad industries

that would be implemented as part of the Glacier Rail Park/Kalispell Core Area Development and Trail 

Project to facilitate compliance with applicable requirements and that provide an effective and 

practicable means of preventing or minimizing the environmental effects of an action. Also included are 

additional commitments that FRA identified through the environmental review process and in consultation 

with other state and Federal resource agencies. The City of Kalispell is responsible for implementing all 

measures identified in this Appendix B and/or ensuring that its construction contractors implement the 

measures. 
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Development and Trail Project

Finding of No Significant Impact

July 2017

Page 30

Environmental Commitments, BMPs, and Minimization Measures

BUILD ALTERNATIVE - GLACIER RAIL PARK BUILD ALTERNATIVE - KALISPELL TRAIL AND 

STREET CONNECTIONS

Air Quality Mitigation/Minimization/Best 

Management Practices (BMPs): 

The City and/or its construction 

contractors will:

Implement BMPs as needed to control 

dust, such as water spraying; use vehicular 

emission-control equipment (e.g., catalytic 

converters); limit idling of equipment.

Mitigation/Minimization/BMPs:

The City and/or its construction 

contractors will:

Implement BMPs as needed to control dust, 

such as water spraying; use vehicular 

emission-control equipment (e.g., catalytic 

converters); limit idling of equipment.

Water Quality 

and Water 

Resources, 

including 

Wetlands 

Mitigation/Minimization/BMPs:

The City and/or its construction 

contractors will:

Follow standard stormwater management 

practices, erosion-control measures, and 

other BMPs, including completing spill 

prevention plans, identification of cleanup 

procedures, and reclamation measures for 

disturbed areas. 

Develop and maintain a Montana Pollutant 

Discharge Elimination System General 

Permit. 

Additionally, Rail Park tenants will use 

BMPs and erosion-control measures 

throughout operations. 

Mitigation/Minimization/BMPs:

Construction will occur within an urban 

setting and therefore prevention of 

stormwater runoff into streets and storm 

drain inlets will be the primary concern. 

The City and/or its construction 

contractors will:

Follow standard stormwater management 

practices, erosion-control measures, and 

other BMPs, including completing spill 

prevention plans, identification of cleanup 

procedures, and reclamation measures for 

disturbed areas.

Develop and maintain a Montana Pollutant 

Discharge Elimination System General 

Permit.

Noise and 

Vibration

Mitigation/Minimization/BMPs:

Should there be complaints regarding noise 

at the East Oregon Lane/Flathead railroad 

crossing intersection, the City will monitor 

the noise levels and, if needed, install 

wayside horns at the impacted intersection.

Mitigation/Minimization/BMPs:

None.

Land Use Mitigation/Minimization/BMPs:

None.

Mitigation/Minimization/BMPs:

None.

Threatened and 

Endangered 

Species, Eagles, 

and Wildlife, Fish 

Mitigation/Minimization/BMPs:

The City and/or its construction 

contractors will:

Mitigation/Minimization/BMPs:

The City and/or its construction 

contractors will:
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Development and Trail Project

Finding of No Significant Impact

July 2017

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BUILD ALTERNATIVE - GLACIER RAIL PARK BUILD ALTERNATIVE - KALISPELL TRAIL AND 

STREET CONNECTIONS

and Vegetation Implement measures to minimize impacts 

to protected species and wildlife, including

the appropriate BMPs, such as silt fencing 

and reseeding disturbed areas, to control 

soil erosion and minimize the potential for 

runoff to affect adjacent water bodies; seal 

any storage bins containing liquids to 

prevent wildlife from accessing them; 

follow proper speed limits and restrictions 

on roadways so as to not change the 

potential for wildlife-vehicle collisions

compared to existing conditions; mark 

overhead utility lines with bird diverters 

to minimize impacts to birds in flight; 

install new utilities or extensions of

existing utilities underground.

Should eagle nests be discovered during 

construction of the Rail Park, to avoid 

disturbing nesting bald eagles, the 

following USFWS recommendations will 

be followed (1) keep a distance between 

the activity and the nest (i.e. 330 to 660 

feet distance buffers depending on visuals 

from the nest); (2) maintain forested or 

natural areas between the activity and 

around nest trees; and (3) avoid certain 

activities, such as tree removal, during the 

breeding season (USFWS 2007a). 

Per Flathead County Weed Control District 

Revegetation Policy, disturbed areas will

be reseeded and reclaimed as soon as 

possible after construction with a Flathead 

County Weed Control District-approved 

seed mix and will occur after completion 

of construction of the Rail Park, either 

between April 15 and June 15 or October 1 

and November 15.

Implement measures to minimize impacts 

to protected species and wildlife, including

the appropriate BMPs, such as silt fencing 

and reseeding disturbed areas, to control 

soil erosion and minimize the potential for 

runoff to affect adjacent water bodies; seal 

any storage bins containing liquids to 

prevent wildlife from accessing them; 

follow proper speed limits and restrictions 

on roadways so as to not change the 

potential for wildlife-vehicle collisions

compared to existing conditions; mark 

overhead utility lines with bird diverters 

to minimize impacts to birds in flight; 

install new utilities or extensions of

existing utilities underground.

Should eagle nests be discovered during 

construction of the Kalispell Trail, to avoid 

disturbing nesting bald eagles, the 

following USFWS recommendations will be 

followed (1) keep a distance between the 

activity and the nest (i.e. 330 to 660 feet 

distance buffers depending on visuals from 

the nest); (2) maintain forested or natural 

areas between the activity and around nest 

trees; and (3) avoid certain activities, such 

as tree removal, during the breeding season 

(USFWS 2007a). 

Per Flathead County Weed Control District 

Revegetation Policy, disturbed areas will be 

reseeded and reclaimed as soon as possible 

after construction with a Flathead County 

Weed Control District-approved seed mix 

and will occur after completion of 

construction of the Rail Park, either 

between April 15 and June 15 or October 1 

and November 15.

Energy Use Mitigation/Minimization/BMPs:

The City and/or its construction 

contractors will:

Limit equipment idling; locate staging 

areas as near to work sites as possible 

Mitigation/Minimization/BMPs:

The City and/or its construction 

contractors will:

Limit equipment idling; locate staging areas 

as near to work sites as possible 
Glacier Rail Park/Kalispell Core Area

Development and Trail Project

Finding of No Significant Impact

July 2017

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BUILD ALTERNATIVE - GLACIER RAIL PARK BUILD ALTERNATIVE - KALISPELL TRAIL AND 

STREET CONNECTIONS

throughout construction; strategically 

deliver construction materials to the Rail 

Park to limit traffic congestion and 

detours.

throughout construction; strategically 

deliver construction materials to the 

Kalispell Trail to limit traffic congestion and 

detours.

Visual Resources Mitigation/Minimization/BMPs:

None.

Mitigation/Minimization/BMPs:

None.

Traffic and 

Transportation

Mitigation/Minimization/BMPs:

Temporary delays and detours will not 

occur at every intersection or roadway 

simultaneously.

The City and/or its construction 

contractors will:

Stagger the timing of construction 

activities across intersections and street 

connections; maintain access to all 

businesses and residences throughout 

construction; clearly sign and mark 

detours for travelers; develop and follow a 

Work Zone Safety and Mobility 

Transportation Management Plan and 

Maintenance of Traffic Plan following MDT 

guidelines (MDT 2015); notify the public 

in advance of road closures or detours; 

install an actuated traffic signal and widen 

the roadway to accommodate large trucks 

turning into the Rail Park in order to 

mitigate unsafe conditions and long queue 

times for vehicles at the US Highway 2 and 

Flathead Drive/Woodland Park Drive 

intersection.

Mitigation/Minimization/BMPs:

Temporary delays and detours would not 

occur at every intersection or roadway 

simultaneously.

The City and/or its construction 

contractors will:

Stagger the timing of construction 

activities across intersections and street 

connections; maintain access to all 

businesses and residences throughout 

construction; clearly sign and mark 

detours for travelers; develop and follow a 

Work Zone Safety and Mobility 

Transportation Management Plan and 

Maintenance of Traffic Plan following MDT 

guidelines; install warning or stop signs at

road crossings for pedestrian and bicyclist 

safety; install curb bump-outs to restrict 

the distance that pedestrians must cross 

roads. 

In addition, to determine if signalization is

warranted at the completed street 

connections, the City will conduct traffic 

signal warrant studies on the completed 

street connections following construction. 

If the traffic signal warrant studies 

indicate the need for signalization at the 

three subject intersections, traffic signals 

will be installed in the future by the City, 

as a separate action(s) from the Project.

Socioeconomics 

and 

Environmental 

Mitigation/Minimization/BMPs:

The City and/or its construction 

contractors will implement the measures 

Mitigation/Minimization/BMPs:

The City and/or its construction 

contractors will implement the measures 
Glacier Rail Park/Kalispell Core Area

Development and Trail Project

Finding of No Significant Impact

July 2017

Page 33

BUILD ALTERNATIVE - GLACIER RAIL PARK BUILD ALTERNATIVE - KALISPELL TRAIL AND 

STREET CONNECTIONS

Justice identified under air and water quality, 

traffic and transportation, noise and 

vibration, and relocations and 

displacements. No additional measures 

identified as there are no environmental 

justice populations within the Study Area. 

identified under air and water quality, 

traffic and transportation, noise and 

vibration, and relocations and 

displacements. No additional measures 

identified as there are no environmental 

justice populations within the Study Area. 

Relocations and 

Displacements 

Mitigation/Minimization/BMPs:

The City will:

Comply with the Uniform Relocation 

Assistance and Real Property Acquisition 

Policies Act (Uniform Act), state law, and its 

own adopted policies and procedures to 

protect the interests of current landowners 

or landowners’ leases; provide 

compensation and assistance in relocations 

consistently and equitably in accordance 

with applicable state and federal laws and 

procedures; independently appraise 

properties to be acquired for fair market 

value; and provide eligible individuals, 

families, businesses, and/or organizations 

assistance with moving costs, housing 

replacement, rental assistance, and/or 

business relocation to minimize hardship.

The City will provide the assistance 

necessary to accomplish the Project 

consistently across all affected parties.

Mitigation/Minimization/BMPs:

The City will:

Comply with the Uniform Act, state law, and 

its own adopted policies and procedures to 

protect the interests of current landowners 

or landowners’ leases; provide 

compensation and assistance in relocations 

consistently and equitably in accordance 

with applicable state and federal laws and 

procedures; independently appraise 

properties to be acquired for fair market 

value; and provide eligible individuals, 

families, businesses, and/or organizations 

assistance with moving costs, housing 

replacement, rental assistance, and/or 

business relocation to minimize hardship.

The City will provide the assistance 

necessary to accomplish the Project 

consistently across all affected parties.

Public Health and 

Safety

Mitigation/Minimization/BMPs:

The City and/or its construction 

contractors will:

Install fencing, warning signage, and/or 

similar measures to restrict unauthorized 

persons from accessing construction sites.

In addition, all pre-construction and 

construction work adjacent to and within 

an active railroad corridor will adhere to 

federal, state, local and host railroad 

worker safety rules and regulations.

Mitigation/Minimization/BMPs:

The City and/or its construction 

contractors will:

Install fencing, warning signage, and/or 

similar measures to restrict unauthorized 

persons from accessing construction sites.
Glacier Rail Park/Kalispell Core Area

Development and Trail Project

Finding of No Significant Impact

July 2017

Page 34

BUILD ALTERNATIVE - GLACIER RAIL PARK BUILD ALTERNATIVE - KALISPELL TRAIL AND 

STREET CONNECTIONS

Hazardous Waste Mitigation/Minimization/BMPs:

The City and/or its construction 

contractors will:

Properly handle and dispose of

contaminated soils; implement appropriate 

BMPs for storing and handling toxic or

hazardous materials and wastes; obtain a 

Montana Pollutant Discharge Elimination 

System (MPDES) permit and implement 

and follow Stormwater General Permit and 

Spill Prevention, Control, and 

Countermeasure (SPCC) plan; identify 

known contaminated areas on 

construction plans; notify proper 

authorities if unanticipated hazardous 

materials are discovered during 

construction or operation of the Rail Park.

Mitigation/Minimization/BMPs:

The City and/or its construction contractor 

will:

Properly handle and dispose of 

contaminated soils; implement appropriate 

BMPs for storing and handling toxic or 

hazardous materials and wastes; obtain a 

MPDES permit and implement and follow 

Stormwater General Permit and SPCC plan; 

identify known contaminated areas on 

construction plans; notify proper 

authorities if unanticipated hazardous 

materials are discovered during 

construction or operation of the Kalispell 

Trail; complete ESA Phase I and/or II 

studies as needed within the portion of the 

Project Area for the Kalispell Trail; if 

needed, require inspection and removal or 

decommissioning underground storage 

tanks (USTs) by qualified, trained and 

licensed professionals in accordance with 

MDEQ guidelines and all Federal, state and 

local regulations regarding the removal of 

USTs; should USTs be left in place, they 

will be properly managed and monitored 

by the City for releases in accordance with 

MDEQ guidelines.

Cultural 

Resources and 

Historic 

Properties

Mitigation/Minimization/BMPs:

None.

Mitigation/Minimization/BMPs:

A Section 106 Memorandum of Agreement 

(MOA) was executed on July 6, 2017 among 

FRA, the Montana SHPO, the City, and other 

consulting parties. The City is responsible 

for implementing the following measures

stipulated in the MOA to mitigate 

unavoidable direct and indirect effects of 

the Kalispell Trail on historic properties: 

leaving a small portion of rail track in place 

near the Great Northern Railway Depot in 

Depot Park; providing interpretive signage 

along the Kalispell Trail that highlights the 

historic importance of the railroad in the 

development of Kalispell and surrounding 
Glacier Rail Park/Kalispell Core Area

Development and Trail Project

Finding of No Significant Impact

July 2017

Page 35

BUILD ALTERNATIVE - GLACIER RAIL PARK BUILD ALTERNATIVE - KALISPELL TRAIL AND 

STREET CONNECTIONS

region; and planting of cherry trees along 

the Kalispell Trail, with emphasis in the 

former location of the Flathead Lake Cherry 

Growers Association Warehouse at 20 

North Main Street, to commemorate the 

area’s history of agriculture, particularly 

cherry orchards along Flathead Lake to the 

south, and the impact of this agricultural 

product on the local and regional economy 

and the importance of the railroad in 

shipping this agricultural product. 

4(f) Properties Mitigation/Minimization/BMPs:

None.

Mitigation/Minimization/BMPs:

See the Section 106 discussion above 

regarding the measures the City will 

implement as stipulated in the MOA to 

mitigate adverse effects to historic 

properties, which are also Section 4(f)-

protected resources. The MT SHPO, the 

official with jurisdiction over National 

Register of Historic Places listed or eligible 

properties is a signatory to the MOA.

Written concurrence with FRA’s proposed 

de minimis impact determination has been 

obtained from the Parks & Recreation

Director, Kalispell Parks and Recreation,

who is the official with jurisdiction over 

Depot Park. If needed, the City will 

implement the following measures 

identified in FRA’s May 23, 2017 letter to 

the Parks Director: To minimize disruption 

and mitigate for temporary construction 

impacts to Depot Park, the City will notify 

Parks and Recreation five business days 

prior to the commencement of the rail 

removal and Kalispell Trail construction 

activities. If desired and at the request of 

the Parks & Recreation Director, the 

construction contractor will avoid carrying 

out construction activities during times that 

events are scheduled in Depot Park.
Glacier Rail Park/Kalispell Core Area

Development and Trail Project

Finding of No Significant Impact

July 2017

Page 36

APPENDIX C: EA Public Comments 
Glacier Rail Park/Kalispell Core Area

Development and Trail Project

Finding of No Significant Impact

July 2017

Page 37

APPENDIX D: Executed Section 106 Memorandum of Agreement