This Supplemental Environmental Assessment (SEA) was prepared by the Federal Railroad 

Administration, the City of Kalispell, and KLJ. 

The following individuals may be contacted for information on the SEA:

Katharine King Laura Shick

City of Kalispell

Kalispell, MT 59901

Federal Railroad Administration

Environmental & Project Engineering Division

201 First Avenue East Office of Railroad Policy and Development

Phone: (406) 758-7713

Email: kking@kalispell.com

1200 New Jersey Avenue S.E.

Washington, DC 20590

Phone: (202) 366-0340

Email: laura.shick@dot.gov
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EXECUTIVE SUMMARY

This document is a supplement to the Environmental Assessment (EA) for the Glacier Rail Park/Kalispell Core 

Area Development and Trail Project (Project), prepared by the City of Kalispell (City) and approved by the US 

Department of Transportation’s (USDOT) Federal Railroad Administration (FRA) in May 2017 (hereafter referred 

to as the 2017 EA). FRA issued a Finding of No Significant Impact (FONSI) for the Project on July 18, 2017. The 

Project is located in the City of Kalispell, Flathead County, Montana, and is receiving grant funding under the 

USDOT’s Fiscal Year (FY) 2015 Transportation Investment Generating Economic Recovery (TIGER) Discretionary 

Grant Program. FRA is administering the TIGER grant. The City is implementing 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.

 Phase II – Removal of 1.6 miles of existing railroad track; construction 

of a 12- to 16-foot-wide, paved, public-use trail on former railroad 

right-of-way (ROW) (i.e., Kalispell Trail); and construction of at least 

one new north-south street connection (i.e., complete street) to 

improve connectivity in downtown Kalispell, also known as the Core 

Area. 

Based on input received during subsequent public and agency involvement conducted by the City for the Project

since the 2017 EA and FONSI, three complete street options previously identified by the City early on in project 

planning, but not evaluated in detail in the 2017 EA (i.e., 4th, 3rd, and 1st Avenue WN) are being considered in 

this Supplemental Environmental Assessment (SEA). These three complete street options are located in the Core 

Area, north of the Kalispell Center Mall (Mall). These three roadways are generally included in the Project Area 

assessed in the 2017 EA, which was defined as the area that would be directly impacted by the construction of 

the Rail Park, Kalispell Trail, and associated improvements (e.g., complete street connections, new traffic control 

devices and utilities, and roadway improvements).

In addition, two modifications are being considered in this SEA: (1) a potential realignment of a small segment 

of the Kalispell Trail (approximately 345 feet) between 4th Avenue WN and 5th Avenue WN (Kalispell Trail 

realignment) and (2) a potential connection of the northeast trailhead (approximately 300 feet) to adjacent 

public ROW at the Flathead Drive/US Highway 2 intersection (northeast trailhead connection). These potential 

modifications to Phase II of the Project are a result of the City’s public outreach efforts and continuation of the 

Project planning process; they are located within the 2017 EA Study Area and Project Area, but were not 

analyzed in the EA.

Currently, north-south traffic movements in the Core Area are restricted because there are only six at-grade 

railroad crossings across the nearly two-mile width of the City. With the removal of the railroad tracks to 

accommodate the Kalispell Trail, there is an opportunity to provide connectivity in the Core Area. Constructing 

8th Avenue WN, 6th Avenue WN, and/or Whitefish Stage Road (7th Avenue EN), as identified in the 2017 EA, 

and/or at least one complete street along 4th, 3rd, or 1st Avenue WN, as identified in this Supplemental EA,

would increase the number of north-south connectionsin the Core Area. The benefits of these additional streets 

include an increase in accessibility and connectivity to the development in the US Highway 2/US Highway 93 

Construction of the Rail Park 

(Phase I) is substantially 

complete as of January 2019.

Removal of the railroad track 

and construction of the 

Kalispell Trail and complete 

street(s) (Phase II) is 

anticipated to begin in the 

spring of 2020.
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area, as well as the underdeveloped and undeveloped lots north of the railroad corridor. This would improve 

circulation in the Core Area, specifically in the vicinity of US Highway 2, 5th Avenue WN, West Center Street, 

and US Highway 93. It would also provide opportunity for development of 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.

At least one complete street would be constructed as part of Phase II of the Project, which was analyzed in the 

2017 EA. All of the streets considered for extension in both the 2017 EA and this SEA are owned and maintained 

by the City. The City has a 60-foot-wide ROW on each existing potential complete street roadway. Associated 

complete street improvements for existing roadways, including sidewalk and curb/gutter installation, urban tree 

plantings, and utility extensions, would be located within the City’s existing 60-foot-wide ROW and Project Area 

limits.

Completed street connections would meet the City of Kalispell local street standards and complete street policy 

(per the Standards for Design and Construction dated April 2, 2019) 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. 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.

The 2017 EA is incorporated by reference into this 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 this SEA focuses on only those resource areas that might be affected by the proposed 

modifications to the Build Alternative (i.e., construction and operation of the 4th, 3rd, and/or 1st Avenue WN

complete street; the Kalispell Trail realignment; and the northeast trailhead connection), or that have 

experienced substantial changes from what was described in the 2017 EA. As a result, the following resource 

areas were evaluated in full detail in this SEA, because of (1) the potential that the Build Alternative could create 

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

the 2017 EA.

 Air Quality – Construction and ground-disturbing activities would result in temporary emissions of criteria 

pollutants and fugitive dust. 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. Upon completion of construction, vehicle 

idling due to limited access, poor traffic circulation, and lack of street connections would decrease, 

further reducing emissions. In addition, adding sidewalks and pedestrian pathways through the area 

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. The minimization measures, mitigation measures, and best management practices 

(BMPs)included in the 2017 FONSI would be followed, as appropriate.

 Noise and Vibration – 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. Upon completion of 

construction, the business owners and residents along 4th, 3rd, or 1st Avenue WN, north of the out-of-
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service railroad corridor would experience a slight increase in traffic noise once a connection street is 

constructed; however, this noise is expected to be offset by removal of the railroad tracks and associated 

noise from trains and train horns. In addition, any noise generated as a result of increased traffic would 

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

northeast trailhead connection would not have any additional operational noise impacts. The mitigation 

measures included in the 2017 FONSI would be followed, as appropriate.

 Land Use – No impacts on land use from construction and operation of at least one complete street, the

Kalispell Trail realignment, or the northeast trailhead connection are expected, as 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 construct additional parking spaces, to offset the loss of any parking caused by 

implementation of certain complete street connections. 

 Ecological Systems – There is no substantial change in the affected environment for wildlife, fish, and 

vegetation species or habitat, and potential impacts and mitigation measures described in the 2017 EA 

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

habitat are not re-assessed in this SEA. However, an additional species (i.e., wolverine [Gulo gulo luscus]) 

was identified during reevaluation of the Project Area. The wolverine is proposed for federal listing as a 

threatened species under Section 7 of the Endangered Species Act (ESA). Due to the urban nature and 

location of the Project and lack of suitable habitat within the Project Area, the Build Alternative is 

anticipated to have no effect on the wolverine. The minimization measures, mitigation measures, and 

BMPs included in the 2017 FONSI would be followed, as appropriate.

 Traffic and Transportation – There would be temporary increases in traffic and congestion in the vicinity 

of the construction sites due to additional construction vehicles, equipment, and machinery. Residents, 

business owners, and retail patrons in the vicinity could experience temporary delays and detours during 

construction. Beneficial impacts would be expected upon completion of construction. Operation of at 

least one complete street would increase the number of north-south connections, improve circulation in

the Core Area, 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 could be expected on existing residents and business owners along US Highway 2 and 

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

patrons travel to and from the retail uses, and as businesses and residences are potentially developed 

north of the railroad corridor. Traffic on US Highway 2 is estimated to increase by approximately 140 
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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. 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 this SEA: the 1st Avenue WN complete street would result in a loss of approximately 10 

parking spaces at the Mall; the 3rd Avenue WN complete street would result in a loss of approximately 2 

to 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 a loss of approximately 8 parking spaces at the 

Mall. However, 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.

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, 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 bicycle access and safety.

The minimization and mitigation measuresincluded in the 2017 FONSI would be followed, as appropriate.

In addition, an agreement would be established between the City and Mall owners to 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. The two to four parking spaces that would be lost at the private business 

as a result of the 3rd Avenue WN complete street would not require mitigation, as they are currently 

located in public ROW. An agreement would be established between the City and business owners at the 

intersections of US Highway 2 and 1st, 3rd, and 4th Avenue WN to address any net loss of parking spaces

as a result of the approach relocation(s). 

 Socioeconomics and Environmental Justice – 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 4th, 3rd, or 1st 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, fugitive dust emissions, and temporary pedestrian and traffic delays and congestion. 

Construction of at least one complete street along 4th, 3rd, or 1st Avenue WN would improve the general 

appeal of the area and spur development along 4th, 3rd, 2nd, and 1st Avenue WN; 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 payroll taxes and sales receipts. Traffic circulation and 
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connectivity would also be improved, and additional transportation options (e.g., walking and biking) 

would be created, 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. The minimization measures, mitigation measures, and BMPs included in the 2017 

FONSI would be followed, as appropriate.

 Relocations – Construction of at least one complete street on 4th, 3rd, or 1st 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

during construction. During final design, 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 include language to ensure public access by motorized and non-motorized 

routes to 5th Avenue NW, West Center Street, and Main Street or US Hwy 93. 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. Because the northeast trailhead connection would be constructed on vacant land, no 

construction impacts are anticipated.

There would be a permanent loss of parking spaces due to implementation of the complete streets: the 

1st Avenue WN complete street would result in the loss of approximately 10 parking spaces at the Mall;

the 3rd Avenue WN complete street complete street would result in the loss of approximately 2 to 4 

parking spaces, which are currently located in the public ROW and being used fora private business; and 

the 4th Avenue WN complete street would result in the loss of approximately 8 parking spaces at the 

Mall. 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, 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 Montana 

Department of Transportation (MDT) and would not displace or require MDT to relocate its facilities or 

operations.

The mitigation measures included in the 2017 FONSI would be followed, as appropriate. In addition, an 

agreement would be established between the City and Mall owners to 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. The two to four parking spaces that would be lost at the private business as a result of 

the 3rd Avenue WN complete street would not require mitigation, as they are currently located in public 

ROW. An agreement would be established between the City and business owners at the intersections of 

US Highway 2 and 1st, 3rd, and 4th Avenue WN to address any net loss of parking spaces as a result of 

the approach relocation(s). The northeast trailhead connection would require an agreement between 

the City and MDT.
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 Hazardous Waste – Considering the design and planned construction activities for the complete streets,

Kalispell Trail realignment, and northeast trailhead connection, it is not anticipated that hazardous 

materials or hazardous wastes would be present in amounts or locations that would pose an 

unacceptable risk to the general public or natural resources. Ground-clearing activities would be shallow 

and would not reach the groundwater. In addition, since groundwater flow at the City Service Valcon 

leaking underground storage tank (LUST)/underground storage tank (UST) site is toward the southsouthwest, away from the Project Area, no impacts on, or from, this site are anticipated from the Build 

Alternative. Construction activities may require the use of small amounts of hazardous materials (e.g., 

cleaning agents, lubricants, fuels, solvents, fertilizers) and may result in the generation of hazardous 

waste. Considering the purpose, design, and operation activities of the Project, it is not anticipated that 

hazardous materials or wastes would be present in amounts or locations that would pose an

unacceptable risk to public health or the environment. The minimization and mitigation measures 

included in the 2017 FONSI would be followed, as appropriate.
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CONTENTS

Executive Summary ........................................................................................................................ i

Acronyms and Abbreviations......................................................................................................... x

Chapter 1 Purpose and Need of the Project............................................................................... 1

1.1 Introduction............................................................................................................1

1.2 Background.............................................................................................................1

1.2.1 2017 EA.............................................................................................................. 1

1.2.2 Previous Public and Agency Involvement.......................................................... 3

1.3 Project Location......................................................................................................5

1.4 Purpose and Need ..................................................................................................5

Chapter 2 Alternatives.............................................................................................................. 8

2.1 No-Build Alternative...............................................................................................8

2.2 Build Alternative.....................................................................................................8

2.2.1 Complete Street Options................................................................................. 10

2.2.2 Kalispell Trail Realignment............................................................................... 13

2.2.3 Northeast Trailhead Connection...................................................................... 14

Chapter 3 Affected Environment and Environmental Consequences....................................... 15

3.1 Introduction..........................................................................................................15

3.2 Scope of Analysis..................................................................................................15

3.2.1 Resource Areas Omitted.................................................................................. 15

3.2.2 Resource Areas Analyzed in Detail................................................................... 17

3.2.3 Summary.......................................................................................................... 17

3.3 Air Quality.............................................................................................................29

3.3.1 Affected Environment...................................................................................... 29

3.3.2 Environmental Consequences ......................................................................... 29

3.3.3 Mitigation ........................................................................................................ 30

3.4 Noise and Vibration..............................................................................................30

3.4.1 Affected Environment...................................................................................... 31

3.4.2 Environmental Consequences ......................................................................... 31

3.4.3 Mitigation ........................................................................................................ 31

3.5 Land Use...............................................................................................................32

3.5.1 Affected Environment...................................................................................... 32

3.5.2 Environmental Consequences ......................................................................... 33

3.5.3 Mitigation ........................................................................................................ 34

3.6 Ecological Systems................................................................................................34

3.6.1 Affected Environment...................................................................................... 34

3.6.2 Environmental Consequences ......................................................................... 34

3.6.3 Mitigation ........................................................................................................ 35

3.7 Traffic and Transportation....................................................................................35

3.7.1 Affected Environment...................................................................................... 36

3.7.2 Environmental Consequences ......................................................................... 37
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3.7.3 Mitigation ........................................................................................................ 38

3.8 Socioeconomics and Environmental Justice.........................................................39

3.8.1 Affected Environment...................................................................................... 39

3.8.2 Environmental Consequences ......................................................................... 40

3.8.3 Mitigation ........................................................................................................ 42

3.9 Relocations...........................................................................................................42

3.9.1 Affected Environment...................................................................................... 42

3.9.2 Environmental Consequences ......................................................................... 42

3.9.3 Mitigation ........................................................................................................ 43

3.10 Hazardous Waste..................................................................................................43

3.10.1 Affected Environment...................................................................................... 44

3.10.2 Environmental Consequences ......................................................................... 45

3.10.3 Mitigation ........................................................................................................ 46

3.11 Cumulative and Indirect Impacts..........................................................................46

3.11.1 Affected Environment...................................................................................... 46

3.11.2 Cumulative and Indirect Impacts Assessment................................................. 47

3.12 Irreversible and Irretrievable Commitments of Resources..................................49

3.13 Permits .................................................................................................................49

Chapter 4 Coordination and Comments.................................................................................. 50

4.1 Public Outreach ....................................................................................................50

Chapter 5 List of Preparers..................................................................................................... 51

Chapter 6 References ............................................................................................................. 52

FIGURES

Figure 1, Kalispell Core Area ........................................................................................................................ 6

Figure 2, Project Area Assessed in 2017 EA and this SEA............................................................................... 7

Figure 3, Local Street Cross Section.............................................................................................................. 9

Figure 4, 4th Avenue WN Connection .........................................................................................................10

Figure 5, 3rd Avenue WN Connection .........................................................................................................11

Figure 6, 1st Avenue WN Connection..........................................................................................................12

Figure 7, Kalispell Trail Realignment ...........................................................................................................13

Figure 8, Northeast Trailhead Connection ...................................................................................................14

Figure 9, City Service Valcon Site ................................................................................................................45
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TABLES

Table 1, Summary of Environmental Impacts and Mitigation/Minimization Measures/BMPs.........18

Table 2, 2017 MDT Annual Average Daily Traffic............................................................................36

Table 3, Demographic and Housing Data .......................................................................................39

Table 4, Employment and Income Data .........................................................................................40

Table 5, Race Data ........................................................................................................................40

Table 6, Preparers.........................................................................................................................51

APPENDICES

Appendix A – Glossary of Terminology and Definitions

Appendix B – Summary of Public Outreach

Appendix C – Memorandum for the Kalispell Trail and Complete Streets Traffic, May 2019

DOCUMENTS INCORPORATED BY REFERENCE

Environmental Assessment and Finding of No Significant Impact for the for the Glacier Rail Park/

Kalispell Core Area Development and Trail Project, May 2017 and July 2017
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ACRONYMS AND ABBREVIATIONS

AADT annual average daily traffic

APE Area of Potential Effect

BMP best management practice

BNSF Burlington Northern Santa Fe

CEQ Council on Environmental Quality

CFR Code of Federal Regulations

CO carbon monoxide

dBA A-weighted decibels

EA Environmental Assessment

EO Executive Order

ESA Endangered Species Act

FONSI Finding of No Significant Impact

FR Federal Register

FRA Federal Railroad Administration

FTA Federal Transit Administration

FY Fiscal Year

GNRR Great Northern Railroad 

H2S hydrogen sulfide 

IPaC Information for Planning and 

Conservation

KPWD Kalispell Public Works 

Department

LUST leaking underground storage tank

LWCF Land and Water Conservation 

Fund

MDT Montana Department of 

Transportation

MOA Memorandum of Agreement 

MPDES Montana Pollutant Discharge 

Elimination System

MTDEQ Montana Department of 

Environmental Quality

NAAQS National Ambient Air Quality 

Standards

NEPA National Environmental Policy Act

NO2 nitrogen dioxide 

NRCS Natural Resources Conservation 

Service

NRHP National Register of Historic 

Places

O3 ozone

Pb lead

PM particulate matter 

ROW right-of-way

SEA Supplemental Environmental 

Assessment

SO2 sulfur dioxide

SPCC Spill Prevention, Control, and 

Countermeasure

STIP State Transportation 

Improvement Plan

SWPPP Stormwater Pollution Prevention 

Plan 

TIGER Transportation Investment 

Generating Economic Recovery

USC United States Code

USDA US Department of Agriculture 

USDOT US Department of Transportation

USEPA US Environmental Protection 

Agency

USFWS US Fish and Wildlife Service

UST underground storage tank

WATCO Mission Mountain Railroad
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CHAPTER 1 PURPOSE AND NEED OF THE PROJECT

1 . 1 I n tr o d u c t i o n

This Supplemental Environmental Assessment (SEA) has been prepared in accordance with the Federal Railroad 

Administration’s (FRA) Procedures for Considering Environmental Impacts (64 Federal Register 28545, May 26, 

1999 as updated in 78 Federal Register 2713, January 14, 2013), which are FRA’s procedures for implementing 

the National Environmental Policy Act (NEPA) and the Council on Environmental Quality’s (CEQ) NEPA 

implementing regulations (40 Code of Federal Regulations [CFR] Parts 1500-1508). 

This document is a supplement to the Environmental Assessment (EA) for the Glacier Rail Park/Kalispell Core 

Area Development and Trail Project (Project), which was prepared by the City of Kalispell (City) and approved 

by FRA in May 2017 (hereafter referred to as the 2017 EA). The 2017 EA included analysis of the potential 

impacts on the human and natural environment from construction and operation of at least one new northsouth street connection (i.e., complete street). Three complete street options(8th Avenue WN, 6th Avenue WN, 

and Whitefish Stage Road [7th Avenue EN]) were analyzed in detail in the 2017 EA; four complete street options

(4th, 3rd, 2nd, and 1st Avenue WN) were identified early on in Project planning by the City, but were not 

analyzed in detail in the 2017 EA. Three of those four complete street options (4th, 3rd, and 1st Avenue WN) 

are evaluated in this SEA as a result of public outreach conducted by the City for the Project after FRA’s issuance 

of a Finding of No Significant Impact (FONSI) on July 18, 2017.

In addition, two modifications to the Kalispell Trail have been proposed by the City since the 2017 EA and are 

evaluated in this SEA: (1) a potential realignment of a small segment of the Kalispell Trail (approximately 345 

feet) between 4th Avenue WN and 5th Avenue WN (Kalispell Trail realignment) and (2) a potential connection 

of the northeast trailhead (approximately 300 feet) to adjacent public right-of-way (ROW) at the Flathead 

Drive/US Highway 2 intersection (northeast trailhead connection). These potential modifications to the Kalispell 

Trail are also result of the City’s public outreach efforts and continuation of the Project planning process.

The Project is being partially funded through the US Department of Transportation’s (USDOT) 2015 Fiscal Year 

(FY) Transportation Investment Generating Economic Recovery (TIGER) Discretionary Grant Program.

1 . 2 B a c k g r o u n d

1.2.1 2017 EA

The 2017 EA evaluated potential impacts on the human and natural environment from the two-phase Project, 

described as follows:

 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. This phase of the Project is substantially 

complete as of January 2019.

The two-phase Project is the result of a 

major community planning effort known as 

the Kalispell Core Area Plan. Additional 

details regarding the plan are provided in 

the 2017 EA.
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 Phase II – Removal of 1.6 miles of existing railroad track; 

construction of a 12- to 16-foot-wide, paved, public-use trail on 

former railroad right-of-way (ROW) (i.e., Kalispell Trail); and 

construction of at least one new north-south street connection (i.e., 

complete street) to improve connectivity in downtown Kalispell, 

also known as the Core Area. The City anticipates starting this phase 

of the Project in the spring of 2020.

Additional details regarding the Project are provided in the 2017 EA.

The following is a summary of the three complete street options analyzed in detail in the 2017 EA (i.e., 8th 

Avenue WN, 6th Avenue WN, and Whitefish Stage Road [7th Avenue EN]); additional details are provided in the 

2017 EA.

 8th Avenue WN – This street connection would be from 8th Avenue WN to West Center Street. The 

existing road consists of an approximate 35-foot-wide, asphalt-paved roadway that lacks sidewalks and

curb and gutter within 60 feet of ROW. This connection would improve connectivity for the local northsouth street system and reduce traffic at the 5th Avenue WN and Meridian Road crossings. Potential 

relocations and property acquisitions of several privately owned, commercial businesses would be 

required to complete this street connection. These relocations and acquisitions were quantified and 

assessed in the 2017 EA.

 6th Avenue WN – This street connection would be from 6th Avenue WN to West Center Street. North of 

the existing rail line, the road consists of an approximate 40-foot-wide, asphalt-paved roadway within 60 

feet of ROW. It contains a sidewalk and landscaped boulevard on the west side of the roadway and has 

curb and gutter. South of the existing rail line, the road consists of an approximate 33-foot-wide, asphaltpaved roadway within 60 feet of ROW. It lacks a sidewalk and curb and gutter. This connection would 

improve connectivity for the local north-south street system and reduce traffic at the 5th Avenue WN

and Meridian Road crossings. Potential relocations and property acquisitions of several privately owned, 

commercial and industrial businesses would be required to complete this street connection. These 

relocations and acquisitions were quantified and assessed in the 2017 EA.

 Whitefish Stage Road (7th Avenue EN) – This street connection would be from Whitefish Stage Road (7th 

Avenue EN) to Woodland Avenue. Whitefish Stage Road (7th Avenue EN) is north of the existing rail line 

and consists of an approximate 24-foot-wide, asphalt-paved roadway within 60 feet of ROW. The road is 

dead-ended by the existing railroad tracks and lacks pedestrian facilities and curb and gutter. Woodland 

Avenue is south of the existing rail line and consists of an approximate 48-foot-wide, asphalt-paved 

roadway that runs adjacent to Woodland Park within 60 feet of ROW. A public-use path runs along the 

eastern side of Woodland Avenue and is separated from the roadway by a boulevard. This connection 

would primarily reduce traffic on the existing 4th Avenue East crossing. Potential relocations and 

property acquisitions of several privately owned, commercial and industrial businesses would be required 

to complete this street connection. These relocations and acquisitions were quantified and assessed in 

the 2017 EA.

The City of Kalispell, Montana, served as 

the lead local agency and worked in 

coordination with the FRA, Flathead County 

Economic Development Authority, 

Burlington Northern Santa Fe Railway, MDT, 

and Mission Mountain Railroad Companies.
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1.2.2 Previous Public and Agency Involvement

This section provides a brief summary of the public and agency involvement efforts previously conducted for 

the Kalispell Core Area Plan and 2017 EA.

Development of, and community outreach for, the Kalispell Core Area Plan took place for more than two and a 

half years, ending in 2012. One hundred and thirty-nine (139) individual property owners were interviewed by 

the City of Kalispell; newsletters were mailed; and there were several open houses, public meetings, and 

presentations throughout 2011 and 2012. In addition, in 2012, a Kalispell Chamber of Commerce presentation,

televised planning board hearings, and televised city council hearings were held and repeated on public access 

television for one month.

Since the City Council adopted the Kalispell Core Area Plan in December 2012, construction and operation of 

the Rail Park and Kalispell Trail has been the focus of numerous public presentations to local organizations. In 

2014 and 2015, the City Council solicited support for the Rail Park and Kalispell Trail from Montana’s Senators 

and Congressmen. The solicitations were followed up by televised public meetings and council presentations.

Public and agency coordination efforts for the 2017 EA began in the early stages of Project planning and continue

through Project design and construction. Scoping packages were sent to federal, state, and local agencies and 

other interested parties in 2013 and 2015. Consultation in accordance with Section 106 of the National Historic 

Preservation Act began in 2016. After approval of the Draft EA by FRA on May 18, 2017, the document was made 

available to the public for a 30-day review and comment period from May 19 through June 17, 2017. FRA 

approved a FONSI for the Project on July 18, 2017.

Between FRA’s issuance of the FONSI and City’s Deep Dive design event in June 

2018, the Project has been the focus of 14 presentations by City staff to 

organizations, such as area chamber of commerce groups, Kalispell Rotary, 

Northwest Montana Association of Realtors, Montana Downtown Conference 

attendees, and Leadership Flathead members. Additionally, City personnel staffed

a Northwest Montana Fair booth for three days in August 2017 to provide 

information and receive public comments on the Project. City staff and Project 

partners (i.e., Flathead County Economic Development Authority, Burlington 

Northern Santa Fe [BNSF], Mission Mountain Railroad [WATCO], and Montana 

Department of Transportation [MDT]) also hosted a Glacier Rail Park 

Groundbreaking event in late August 2017 to celebrate the commencement of the 

Project. Tours of the Project area were provided to Montana Governor Steve 

Bullock and members of the Community Builders organization. 

The Kalispell City Council traveled to Washington, DC once a year over the course of five years (2014 to 2018) 

to provide a Project update to Montana’s Senators and Congressman, as well as a number of federal agencies,

such as the US Environmental Protection Agency (USEPA), Surface Transportation Board, US Economic 

Development Administration, and FRA. Each trip was followed up with a presentation at the City Council 

meeting, which were open to the public and televised.

During the post-2017 FONSI period, the City reached out to landowners that would be affected by a potential 

8th or 6th Avenue WN complete street connection. 6th Avenue WN received little support, with members of 

the public stating that the complete street would be too close to 5th Avenue WN to be of significant value. 8th 

The Deep Dive design event 

was held from June 4 to 8, 

2018, to gather feedback from 

the community on the 

preferred trail design concepts 

and three complete street 

options proposed in the 2017 

EA. It encompassed multiple 

events, stakeholder meetings, 

and consultation with the 

public. More than 600 people 

attended the series of events.
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Avenue WN and Whitefish Stage Road (7th Avenue EN) received substantial public support, but little support

from the potentially affected property owners. Both options scored highly with regard to overall north-south 

connectivity and the value to the transportation network as a whole. 8th Avenue WN scored highest in its 

perceived value to improve economic activity in the Core Area, whereas Whitefish Stage Road (7th Avenue EN) 

was perceived as a greater value to non-motorized connectivity and access to destinations.

The City also sent out approximately 120 newsletters in July 

2018 to the Woodland Avenue residents informing them of the 

general popular support for connecting their street to 7th 

Avenue EN and inviting them to provide written, email, or 

telephone comment. The City also advertised a 30-day comment 

period and scheduled an open house. A total of 30 members of 

the public attended the open house and 60 public comments 

were received. Of the 60 comments received, 58 were against 

Whitefish Stage Road (7th Avenue EN) as a complete street 

option, stating that it would be a detriment to neighborhood 

safety and livability due to increased traffic and noise. As a 

result, the Trail Crew concurred that Whitefish Stage Road (7th 

Avenue EN) should be removed from consideration as a 

complete street option. 

Throughout the outreach period, the overall sentiment from the general public, property owners within the 

Core Area, and majority of those potentially directly affected by a proposed street connection was consistently 

positive toward the Project as a whole and the construction of the Kalispell Trail specifically.

Other options for complete street routes were suggested by the public during the City’s additional outreach 

period. One route suggested by a member of the public was determined by the City to impact more property 

owners than the three options analyzed in the 2017 EA and the three options currently under consideration in 

this SEA, and therefore, require more land acquisition. The need for the City to acquire more land could place 

the Project at greater risk of exceeding budgeted funds available and extending the Project schedule. One public

comment submitted since the 2017 EA requested the upgrade of utilities within the Core Area, but outside the 

construction limits of the Project as defined in the 2017 EA. While there may be a general need for improved 

utility infrastructure in downtown Kalispell, improving transportation efficiency and safety is the specific focus 

of this TIGER-funded Project.

The City continues to maintain open communications with the affected property owners and will continue to

do so throughout the life of the Project. The City has historically been and remains reluctant to take any property 

through the eminent domain process, and since the 2017 EA has had difficulties conducting property appraisals 

and purchasing property through the Uniform Relocation Assistance and Real Property Acquisition Act of 1970 

(Uniform Relocation Act) that are necessary to implement the 6th and 8th Avenue WN options. To ensure the 

Project can be completed within the current budget and schedule, the City chose to explore other options for 

the locations of the complete street connection(s), which are a required scope element of the FY 2015 USDOT 

TIGER Discretionary Grant Agreement.

The City is developing this SEA to analyze three street connections that are within the Study Area used for the 

2017 EA, but were not analyzed in detail in the EA (i.e., 4th, 3rd, and 1st Avenue WN). In addition, a potential 

The Trail Crew is an advisory committee to the City made 

up of the following organizations: Flathead County 

Economic Development Authority/Montana West 

Economic Development, Flathead County Library System, 

Kalispell Business Improvement District/Downtown 

Association, Kalispell Chamber of Commerce, Kalispell 

Convention and Visitor Bureau, Kalispell Center Mall, 

Northwest Montana Association of Realtors, Rails to Trails 

of NW Montana, Glacier Bank, Kalispell Architectural 

Review Committee, Kalispell Urban Renewal Agency 

Board, Kalispell Parks & Recreation Department, Kalispell 

Public Works, Kalispell City Clerk, MDT, Museum at 

Central School, Kalispell Regional Healthcare, Kalispell 

Public Schools, Flathead Industries, Kalispell Revolving 

Loan Fund Committee, Agency on Aging, Planning Board 

Member, and Bike Walk Montana.
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realignment of a small segment of the Kalispell Trail between 4th Avenue WN and 5th Avenue WN and a 

potential connection of the northeast trailhead to adjacent public ROW at the Flathead Drive/US Highway 2 

intersection being considered in this SEA. These potential modifications to Phase II of the Project are a result of 

the City’s public outreach efforts and a continuation of the Project planning process; they are located 2017 EA 

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

1 . 3 P r o j e c t L o c a t i o n

The Project is located in the City of Kalispell, Flathead County, Montana. 4th, 3rd, 

and 1st Avenue WN are located in downtown Kalispell (i.e., the Core Area), north 

of the Kalispell Center Mall (Mall). The three street connections, Kalispell Trail 

realignment, and northeast trailhead connection are included in the Project Area 

assessed in the 2017 EA. This Project Area was defined as the area that would be 

directly impacted by the construction of the Rail Park, Kalispell Trail, and 

associated improvements (e.g., complete street connections, new traffic control 

devices and utilities, and roadway improvements). Additional details pertaining 

to the Core Area are provided in the 2017 EA. 

Figure 1 provides an overview of the Kalispell Core Area, and Figure 2 provides an overview of the Project Area 

with the locations of all proposed complete street connections (analyzed in the 2017 EA and this SEA) and the 

northeast trailhead.

1 . 4 P u r p o s e a n d N e e d

As discussed in the 2017 EA, the Project is needed to address several issues associated with the current layout 

of the Kalispell Core Area (e.g., restricted/limited traffic movement, lack of adequate and safe pedestrian 

facilities). The existing railroad line to be removed and ROW to be converted to the Kalispell Trail runs directly 

through the Core Area, splitting and isolating Kalispell into northern and southern portions. Adjacent to the 

existing railroad tracks are small city lots, incompatible uses, several acres of underdeveloped and undeveloped 

properties, and dead-end streets. 

Currently, north-south traffic movement is restricted in the Core Area, because there are only six at-grade 

railroad crossings across the nearly two-mile width of the City, which diverts traffic to US Highway 93 and 

impacts access and circulation within the Core Area. With the removal of the railroad tracks to accommodate 

the Kalispell Trail, there is an opportunity to provide needed connectivity in the Core Area. Constructing 8th 

Avenue WN, 6th Avenue WN, and/or Whitefish Stage Road (7th Avenue EN), as identified in the 2017 EA, and/or 

at least one complete street along 4th, 3rd, or 1st Avenue WN, as identified in this SEA, would increase the 

number of north-south connections in the Core Area. The benefits of these additional streets include an increase 

in accessibility and connectivity to the development in the US Highway 2/US Highway 93 area, as well as the 

underdeveloped and undeveloped lots north of the railroad corridor. This would improve circulation in the Core 

Area, specifically in the vicinity of US Highway 2, 5th Avenue WN, West Center Street, and US Highway 93. It 

would also provide opportunity for development of 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 Core Area is the traditional 

industrial hub adjacent to 

downtown located along the rail

corridor within City limits. It is 

bounded to the north by 

Washington Street, east and west 

by City limits, and south by 1st 

Street.
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Figure 1, Kalispell Core Area
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Figure 2, Project Area Assessed in 2017 EA and this SEA
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CHAPTER 2 ALTERNATIVES

This chapter provides details on the No-Build Alternative and Build Alternative analyzed in this SEA. Where 

necessary, information from the 2017 EA is summarized briefly. 

2 . 1 N o - B u i l d A l t e r n a t i v e

CEQ regulations require consideration of the No Action Alternative (No-Build). The No-Build Alternative 

serves as a baseline against which the potential impacts from the Build Alternative can be evaluated. Under 

the No-Build Alternative, the City would not implement Phase II of the Project. There would be no 

construction of the Kalispell Trail or complete street connections, nor any of the proposed modifications 

described in this SEA. The number of north-south connections in the Core Area and accessibility and 

connectivity to the existing retail areas and underdeveloped and undeveloped lots north of the railroad 

corridor would not be increased or improved. Traffic circulation in the Core Area (specifically in the vicinity 

of US Highway 2, 5th Avenue WN, West Center Street, and US Highway 93) and the general appeal of the area 

would not be improved. The No-Build Alternative does not meet the Project’s purpose and need. 

2 . 2 B u i l d A l t e r n a t i v e

As previously discussed in Section 1.2.1, the 2017 EA analyzed construction and operation of at least one

north-south complete street. Based on information known at the time and public input received for the 

Project, only three complete street options (i.e., 8th Avenue WN, 6th Avenue WN, and Whitefish Stage Road 

[7th Avenue EN]) were evaluated in detail in the 2017 EA. Four potential connections (i.e., 4th, 3rd, 2nd, and 

1st Avenue WN) were not analyzed in detail in the 2017 EA, because of the comparatively stronger positive 

public input received for the 8th Avenue WN, 6th Avenue WN, and Whitefish Stage Road (7th Avenue EN) 

options. Subsequently, these three complete street options (8th Avenue WN, 6th Avenue WN, and Whitefish 

Stage Road [7th Avenue EN]) were included in the 2017 FONSI for the Project. However, in response to public 

input after issuance of the FONSI (see Section 1.2.2), three of the four complete street options (i.e., 4th, 3rd, 

and 1st Avenue WN) that were not analyzed in detail in the 2017 EA are being considered in this SEA as part 

of the Build Alternative for Phase II of the Project. In addition, the City’s public outreach and Project planning 

process resulted in two proposed modificationsto the Kalispell Trail that are also analyzed as part of the Build 

Alternative in this SEA: (1) a potential realignment of a small segment of the Kalispell Trail between 4th

Avenue WN and 5th Avenue WN (Kalispell Trail realignment) and (2) a potential connection of the northeast 

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

connection).

The potential complete street options would increase the number of north-south connections in the Core 

Area and provide connectivity and increase accessibility to the retail areas and underdeveloped and 

undeveloped lots north of the railroad corridor. This would meet the Project’s purpose and need in terms of 

improving circulation in the Core Area, specifically in the vicinity of US Highway 2, 5th Avenue WN, West 

Center Street, and US Highway 93. It 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.
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A desktop study of traffic for the three complete street options was conducted by KLJ in February 2019 and 

documented in the Memorandum for the Kalispell Trail and Complete Streets Traffic (May 2019) (Appendix 

C). The memorandum informed the analysis in this SEA.

At least one complete street would be constructed as part of Phase II of the Project, which the City anticipates

beginning in the spring of 2020. All of the streets considered for connection are owned and maintained by 

the City. The City has a 60-foot-wide ROW on each roadway. Roadway improvements for existing roadways

(including sidewalk and curb and gutter installation, urban tree plantings, and sewer and water extensions)

would be located within the existing 60-foot-wide ROW and the Project Area limits.

Completed street connections would meet the City of Kalispell local street standards and complete street 

policy (per the Standards for Design and Construction dated April 2, 2019), 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 (KPWD 2019) (see Figure 3). 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.

Figure 3, Local Street Cross Section

The following includes additional details on construction of the complete street options, the Kalispell Trail 

realignment, and the northeast trailhead connection which collectively are the Build Alternative analyzed in 

this SEA.
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2.2.1 Complete Street Options

2.2.1.1 4th Avenue WN

Please refer to Figure 4 for a depiction of the 4th 

Avenue WN connection. To connect 4th Avenue WN

from north of the existing railroad corridor to the Mall,

the Mall parking lot would require reconfiguration to 

address the offset between 4th 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 3,300 square-feet of Mall 

property would be temporarily disturbed, and 

approximately eight parking spaces at the Mall would 

be lost. During final design, the City and Mall owners 

would enter into an agreement that outlines each 

party’s responsibilities for the construction and longterm 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 4th Avenue WN (not 

shown in Figure 4) might require relocation, and 

parking spaces could be lost, depending on the ROW 

and complete street cross-section. However, 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.

Due to 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.

Figure 4, 4th Avenue WN Connection
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2.2.1.2 3rd Avenue WN

Please refer to Figure 5 for a depiction of the 3rd 

Avenue WN connection. Approximately 900 squarefeet 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 lost. During final design, 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

(not shown in Figure 5) might require relocation or 

reconfiguration, and parking spaces could be lost,

depending on the ROW and complete street crosssection. However, 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.

Figure 5, 3rd Avenue WN Connection
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2.2.1.3 1st Avenue WN

Please refer to Figure 6 for a depiction of the 1st 

Avenue WN connection. To connect 1st Avenue 

WN from north of the existing railroad corridor

to the Mall, the Mall parking lot would require 

reconfiguration 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 lost. During 

final design, 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 (not shown in Figure 6) might require 

relocation, and parking spaces could be lost,

depending on the ROW and complete street 

cross-section. However, 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.

Figure 6, 1st Avenue WN Connection
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2.2.2 Kalispell Trail Realignment

Please refer to Figure 7 for a depiction of the potential realignment of a small segment of the Kalispell Trail 

between 4th Avenue WN and 5th Avenue WN. As part of the public outreach and design efforts for Phase II

of the Project, the Mall 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 the modification to the Kalispell Trail alignment be implemented, the City and the Mall owners would 

first 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 back to railroad use in the future.

Figure 7, Kalispell Trail Realignment
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2.2.3 Northeast Trailhead Connection

Please refer to Figure 8 for a depiction of the 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 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 

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 

be required to meet the same design standards as the rest of the Kalispell Trail and Americans with Disabilities 

Act (ADA) standards, 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 this 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.

Figure 8, Northeast Trailhead Connection
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CHAPTER 3 AFFECTED ENVIRONMENT AND ENVIRONMENTAL 

CONSEQUENCES

3 . 1 I n t r o d u c t i o n

This chapter describes the existing environment (i.e., baseline conditions) within the Project and Study Areas

(defined below) that could be affected by the alternatives, as well as the potential impacts from the alternatives. 

This chapter also summarizes best management practices (BMPs) and mitigation, minimization, and avoidance 

methods that would be implemented as part of the Build Alternative. 

 Project Area – The Project Area refers to the construction footprint or the area that could be directly 

impacted during construction and operation of the Project.

 Study Area – The Study Area includes the Project Area, as well as a larger area, that could be impacted

directly and/or indirectly during construction and operation of the Project. The size of the Study Area 

varies depending on the resource being analyzed. For certain resources (e.g., traffic and transportation), 

the Study Area includes the traffic and roadways within the Core Area. For other resources (e.g., 

socioeconomics and environmental justice), the Study Area includes City of Kalispell and entire State of 

Montana.

3 . 2 S c o p e o f A n a l y s i s

3.2.1 Resource Areas Omitted

The following environmental resource categories that are typically analyzed in NEPA documents are not 

included in this SEA, for the reasons explained below:

 Floodplains – The Project Area is outside of a designated 100-year floodplain per Federal Emergency 

Management Agency Flood Plain Panel # 30029C 1810J (effective date of November 4, 2015).

 Prime and Unique Farmlands – The Project Area does not contain any soils classified by the US 

Department of Agriculture/Natural Resources Conservation Service as prime or unique farmland or 

farmland of statewide or local importance.

 Wild and Scenic Rivers – There are no rivers in the Project Area that are designated as Wild and Scenic 

under the National Wild and Scenic Rivers System (Public Law 90-542; 16 United States Code [USC] 1271 

et seq.).

 Coastal Barriers and Coastal Zone – The Project Area is not located in a coastal barrier or coastal zone 

area.

 Section 6(f) – A search of the Montana Fish, Wildlife, and Parks Recreation Grants Land and Water 

Conservation Fund (LWCF) Website identified two Section 6(f) resources in the vicinity of the Project 

Area: Woodland Park and Conrad Complex (Montana State Parks 2008). However, the Build Alternative 

does not require conversions of these properties; therefore, a Section 6(f) evaluation is not required.
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The 2017 EA is incorporated by reference; therefore, the scope of this SEA focuses on only those resource areas 

that might be affected by the proposed modifications to the Build Alternative (i.e., construction and operation

of the 4th, 3rd, and/or 1st Avenue WN complete street; the Kalispell Trail realignment; and the northeast 

trailhead connection) and No-Build Alternative or that have experienced substantial changes from what was 

described in the 2017 EA. The following resource areas are not analyzed in full detail, because the affected 

environment, potential impacts, and mitigation/minimization measures or BMPs described for these resources 

in the 2017 EA would not substantially change for the Build Alternative analyzed in this SEA.

 Water Quality and Water Resources – Construction of the complete street(s) would increase the acreage 

of impervious surface area north of the existing railroad corridor, which would limit the ability of water 

to penetrate and restore groundwater sources and produce more surface runoff. The Kalispell Trail 

realignment would have little or no impact to the impervious surface calculated as part of the 2017 

EA/FONSI, and the northeast trailhead connection could slightly increase the acreage of impervious 

surface area at the northeast corner of the limits of the Kalispell Trail. Any provision of new parking 

spaces/lot to offset the loss of any existing parking that may only be necessary for certain complete street 

options could create additional impervious surface if the number of new spaces exceeds existing spaces.

As identified in the 2017 FONSI, a Montana Pollutant Discharge Elimination System General Permit from 

the Montana Department of Environmental Quality (MTDEQ) would be required and regular street 

sweeping, leaf collection, and storm drainage system inspection and cleaning would be implemented for 

any selected complete street option(s) as well as the Kalispell Trail.

 Energy Use – Electricity and energy resource demand would increase slightly during construction of the 

complete street(s), Kalispell Trail realignment, and northeast trailhead connection; however, any increase 

in electricity and energy resource demand would be temporary and is not anticipated to exceed existing 

capacity. The complete street would reduce fuel consumption by increasing traffic efficiency. 

 Visual Resources – The appeal of the area north of the existing railroad corridor would be improved with 

construction of at least one complete street, which would include sidewalk and curb and gutter 

installation, urban tree plantings, and utility extensions. This would improve the visual appeal and fit with 

the current visual setting of the streets within the Core Area. This conclusion also applies to the Kalispell 

Trail realignment and northeast trailhead connection.

 Public Health and Safety – Construction of the complete street(s), Kalispell Trail realignment, and 

northeast trailhead connection would result in temporary increases in fugitive dust and emissions. Public 

access to work zones would be restricted by fencing and standard safety features. In addition, there 

would be signed detours, and contractors would follow MDT Work Zone Safety and Mobility Goals and 

Objectives, Guidelines, Procedures, and Processes (MDT 2015).

 Cultural Resources and Historic Properties – The Area of Potential Effect (APE) established as part of 

Section 106 consultation and assessed in the 2017 EA encompasses the locations of the three complete 

street options, Kalispell Trail realignment, and northeast trailhead connection analyzed in this SEA. Of the 

potential historic properties identified and assessed within the APE in the 2017 EA, only one is in the 

vicinity of the three complete street options: the Continental Oil Company Warehouse and Garage. This 

property, which is located at 51 1st Avenue West North, was determined to be Not Eligible for the 

National Register of Historic Places (NRHP) during FRA’s Section 106 consultation for the Project in 2016-

2017.
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 Section 4(f) – The complete street(s), Kalispell Trail realignment, and northeast trailhead connection

would be constructed following the removal of the railroad infrastructure. The NRHP-eligible Great 

Northern Railroad (GNRR) is a Section 4(f) property. The Memorandum of Agreement (MOA) executed in 

the 2017 for the Project pursuant to Section 106 includes mitigation to resolve adverse effects on the 

GNRR. The mitigation included in the MOA represents all possible planning to minimize harm to the 

Section 4(f))-protected resource. 

3.2.2 Resource Areas Analyzed in Detail

The following resource areas were evaluated in detail in this SEA, because of

(1) the potential that the Build Alternative could create a different impact than 

what was described in the 2017 EA, or (2) the affected environment has 

changed since the 2017 EA. 

 Air Quality (Section 3.3)

 Noise and Vibration (Section 3.4)

 Land Use (Section 3.5)

 Ecological Systems (Section 3.6)

 Traffic and Transportation (Section 3.7)

 Socioeconomics and Environmental Justice (Section 3.8)

 Relocations (Section 3.9)

 Hazardous Waste (Section 3.10)

3.2.3 Summary 

Potential impacts from the Build Alternative and No-Build Alternative, as well as mitigation/minimization 

measures and BMPs for air quality, noise and vibration, land use, ecological systems, traffic and transportation,

socioeconomics and environmental justice, relocations, hazardous waste, and cumulative impacts are 

summarized in Table 1.

A Glossary of Terminology and 

Definitions, including laws, 

regulations, and Executive Orders, is 

provided in Appendix A.
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Table 1, Summary of Environmental Impacts and Mitigation/Minimization Measures/BMPs

RESOURCE AREA BUILD ALTERNATIVE - THREE ADDITIONAL COMPLETE STREET CONNECTIONS, 

KALISPELL TRAIL REALIGNMENT, 

AND NORTHEAST TRAILHEAD CONNECTION

NO-BUILD ALTERNATIVE

Air Quality Construction Impacts: Construction and ground-disturbing activities would result in 

temporary emissions of criteria pollutants and fugitive dust. Emissions are not 

anticipated to increase the frequency or severity of NAAQS violations or delay 

timely attainment of the NAAQS, and would be consistent with conformity 

regulations.

Operation Impacts: Vehicle idling would decrease, further reducing emissions. In 

addition, adding sidewalks and pedestrian pathways would increase the efficiency 

and public appeal for alternative and non-motorized modes of transportation, 

which could further reduce emissions. It is anticipated that air quality conditions 

within the Core Area would improve.

Mitigation/Minimization/BMPs: Spraying water to control fugitive dust, using 

vehicular emission control equipment, and limiting construction equipment idle 

time would be implemented. All construction equipment would comply with

USEPA emission standards for nonroad engines.

No changes to current air quality; however, traffic conditions

would remain the same and automobiles would continue to idle

due to limited access, poor traffic circulation, and lack of street 

connections, further contributing emissions.

Noise and Vibration Construction Impacts: Construction activities 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: Business owners and residents along 4th, 3rd, and/or 1st 

Avenue WN north of the out-of-service railroad corridor would experience a slight 

increase in vehicular traffic noise once a complete street connection is 

constructed; however, this noise is expected to be offset by removal of the railroad 

tracks and associated noise from trains and train horns. In addition, any noise 

generated as a result of increased vehicular traffic on the new complete street(s)

would be consistent with the existing noise in the surrounding area. The Kalispell 

No changes or impacts on current noise levels within the noise and 

vibration Study Area.
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RESOURCE AREA BUILD ALTERNATIVE - THREE ADDITIONAL COMPLETE STREET CONNECTIONS, 

KALISPELL TRAIL REALIGNMENT, 

AND NORTHEAST TRAILHEAD CONNECTION

NO-BUILD ALTERNATIVE

Trail realignment and northeast trailhead connection would not have any 

additional operational noise impacts.

Mitigation/Minimization/BMPs: Construction would not take place from 10:00 

p.m. to 7:00 a.m. when sensitivity to noise is more pronounced due to lower levels 

of background noise. Additionally, construction activities would be restricted to 

weekdays. Construction would not occur on weekends, unless special permission is

granted by the Kalispell Public Works Department or MDT.

Land Use Construction Impacts: There would be no impacts on land use from construction of 

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

trailhead connection, as the zoning would not change from its current designation 

of B-3 (business district that provides areas for development of congregated 

community shopping areas to serve neighborhoods) and B-2 (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).

Operation Impacts: Construction of at least one complete street would provide 

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. It 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. The northeast trailhead connection would not have any impact on 

land use.

No land use changes or impacts, and all current land uses would 

remain as they exist today.
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RESOURCE AREA BUILD ALTERNATIVE - THREE ADDITIONAL COMPLETE STREET CONNECTIONS, 

KALISPELL TRAIL REALIGNMENT, 

AND NORTHEAST TRAILHEAD CONNECTION

NO-BUILD ALTERNATIVE

Mitigation/Minimization/BMPs: No significant adverse impacts to land use are 

anticipated as a result of the Build Alternative, and therefore no mitigation is 

proposed.

Ecological Systems (Threatened and 

Endangered Species)

Construction/Operation Impacts: Due to the urban nature and location of the 

Project and lack of suitable habitat within the Project Area, the Build Alternative is 

anticipated to have no effect on protected species.

Mitigation/Minimization/BMPs: Measures to minimize impacts on wildlife 

(including threatened and endangered species) would include the appropriate 

BMPs, such as silt fencing and reseeding disturbed areas, to control soil erosion 

and minimize the potential for runoff to affect adjacent waterbodies. Any storage 

bins containing liquids would be sealed to prevent wildlife from accessing them, 

and proper speed limits and restrictions would be followed on roadways to prevent 

wildlife-vehicle collisions. To minimize the effects of overhead utility lines on birds 

in flight, any overhead lines impacted or installed would be marked with bird 

diverters, and new placements or extensions of utilities would be installed 

underground.

Should eagle nests be discovered during construction of the complete street(s), 

Kalispell Trail realignment, or northeast trailhead connection, to avoid disturbing 

nesting bald eagles, the USFWS recommends (1) keeping a distance between the 

activity and the nest (i.e., 330 to 660 feet distance buffers depending on visuals 

from the nest); (2) maintaining forested or natural areas between the activity and 

around nest trees; and (3) avoiding certain activities, such as tree removal, during 

the breeding season (USFWS 2007). 

In compliance with Flathead County Weed Control District Revegetation Policy, 

disturbed areas would be reseeded and reclaimed as soon as possible after 

construction with a Flathead County Weed Control District-approved seed mix, and 

shall occur after completion of the complete street(s), either between April 15 and 

June 15 or October 1 and November 15.

No impacts to protected species.
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RESOURCE AREA BUILD ALTERNATIVE - THREE ADDITIONAL COMPLETE STREET CONNECTIONS, 

KALISPELL TRAIL REALIGNMENT, 

AND NORTHEAST TRAILHEAD CONNECTION

NO-BUILD ALTERNATIVE

Traffic and Transportation Construction Impacts: Construction equipment and machinery may temporarily 

add more traffic and congestion to the roadways in the immediate vicinity of the 

three complete street options, Kalispell Trail realignment, and northeast trailhead 

connection; though final routes for equipment have not yet been determined. 

Major arterials, such as US Highway 2 and US Highway 93, are anticipated to be 

used by heavy equipment mobilizing to the construction sites and staging areas.

Residents and commercial business owners along the complete street(s) could 

experience temporary delays and detours. In addition, there could be potential 

delays and detours along US Highway 2, Flathead Drive, 5th Avenue WN, West 

Center Street, and US Highway 93 and in the Mall parking lot.

Operation Impacts: Operation of at least one complete street would increase the 

number of north-south connections in the Core Area improving circulation

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

and US Highway 93), and reducing traffic congestion. Patrons traveling to the retail 

areas would be able to use 4th, 3rd, or 1st Avenue WN for more direct access. 

Access and connectivity to the businesses in the US Highway 2/US Highway 93 area 

and underdeveloped and undeveloped lots north of the railroad corridor would 

also be increased. Completion of at least one street connection with 

improvements, including sidewalks, would provide connectivity for pedestrians in 

areas previously void of those facilities (i.e., north of the railroad corridor). 

Adverse impacts could be expected on existing residents and business owners 

along US Highway 2 and the complete street(s), as there would be a slight increase 

in AADT as patrons travel to and from the retail uses. 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. This would add to the 

overall increase AADT in the immediate vicinity. Traffic on US Highway 2 is 

estimated to increase by approximately 140 vehicles during the evening peak hours

There would be no alternative means of non-motorized 

transportation (e.g., walking, biking) or complete street 

connections in the Core Area. Bicyclists and pedestrians would not 

benefit from the added efficiency and safety of a connected trail 

network or improved street connections. North-south traffic in the 

Core Area would remain restricted by the limited number of northsouth connections, and traffic circulation would not be improved. 

Patrons traveling to the retail areas via 4th, 3rd, or 1st Avenue WN

would still need to travel around using 5th Avenue WN, West 

Center Street, and US Highway 93. 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 would not be increased.
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RESOURCE AREA BUILD ALTERNATIVE - THREE ADDITIONAL COMPLETE STREET CONNECTIONS, 

KALISPELL TRAIL REALIGNMENT, 

AND NORTHEAST TRAILHEAD CONNECTION

NO-BUILD ALTERNATIVE

(i.e., 3:00 p.m. to 6:00 p.m.) with construction of at least one complete street. This 

slight increase in traffic would not exceed the capacity of the current roads.

In addition, there would be a loss of parking spaces: the 1st Avenue WN complete 

street would result in the loss of approximately 10 parking spaces at the Mall; the 

3rd Avenue WN complete street would result in the loss of approximately 2 to 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 8 parking spaces at the Mall. However, 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. 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, 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 bicycle access and safety.

Mitigation/Minimization/BMPs: Temporary delays and detours would not occur at 

every street, intersection, retail driveway, or Mall driveway simultaneously; rather, 

construction would be staggered. Access to all businesses and residences would be 

maintained throughout construction. Detours would be signed and marked clearly 

for travelers, and a Work Zone Safety and Mobility Transportation Management 

Plan and Maintenance of Traffic Plan following MDT guidelines would be 

developed and adhered to by the City’s contractor. The public would be notified in 
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RESOURCE AREA BUILD ALTERNATIVE - THREE ADDITIONAL COMPLETE STREET CONNECTIONS, 

KALISPELL TRAIL REALIGNMENT, 

AND NORTHEAST TRAILHEAD CONNECTION

NO-BUILD ALTERNATIVE

advance of closures or detours through means of local news stations, newspapers, 

and radio announcements.

To determine if roadway signalization and/or turn lanes would be warranted at the 

completed street connections, future traffic signal warrant studies on the street 

connections would be completed by the City after construction of Phase II of the 

Project. If the traffic signal warrant studies indicate a need for roadway 

signalization and/or turn lanes, traffic signals and appropriate lane configurations

would be installed in the future by the City, separate from the Project.

An agreement would be established between the City and Mall owners to 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. The two to four parking 

spaces that would be lost at the private business as a result of the 3rd Avenue WN 

complete street would not require mitigation, as they are currently located in 

public ROW. An agreement would be established between the City and business 

owners at the intersections of US Highway 2 and 1st, 3rd, and 4th Avenue WN to 

address any net loss of parking spaces as a result of the approach relocation(s).

The Kalispell Trail realignment would have the same mitigation measures as 

outlined for the Kalispell Trail in the 2017 FONSI. In addition, this realignment 

could allow the Mall to construct additional parking, which could provide potential 

mitigation for the loss of parking associated with implementation of one or more 

of the complete street options. The northeast trailhead connection would require 

an agreement between the City and MDT, the owner of the vacant property the 

trailhead connection would traverse. 

Socioeconomics and Environmental Justice Construction Impacts: Temporary, localized impacts on commercial businesses and 

residences north of the railroad corridor during construction of at least one 

complete street along 4th, 3rd, or 1st Avenue WN and the Kalispell Trail 

realignment. Temporary, localized impacts on commercial businesses and 

residences west and east of the railroad corridor, respectively, near the Flathead 

No significant impacts on demographics, economics, community 

cohesion, or businesses within the community. However, neither 

Kalispell nor the region of northwest Montana would capitalize on 

the added economic and trade value of creating jobs and attracting 

new developers/development to the Kalispell Trail areas and along 
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RESOURCE AREA BUILD ALTERNATIVE - THREE ADDITIONAL COMPLETE STREET CONNECTIONS, 

KALISPELL TRAIL REALIGNMENT, 

AND NORTHEAST TRAILHEAD CONNECTION

NO-BUILD ALTERNATIVE

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 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. Operation of at least one complete street would improve the general 

appeal of the area and spur development along 4th, 3rd, 2nd, and 1st Avenue WN; 

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 Mall 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 payroll taxes and sales receipts. Traffic circulation and connectivity 

would also be improved, and alternative transportation options (e.g., walking and 

biking) would be created, connecting people and neighborhoods with jobs, 

services, and goods. There would be no direct or indirect impacts on 

environmental justice populations because there are no environmental justice 

populations within the Study Area.

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

Highway 2. The general appeal of the area would not be improved, 

the lack of connectivity in the community and visibility of existing 

businesses north of the Mall would continue, social benefits to the 

community would not be realized, and disconnection in the 

community would continue. There would be no direct or indirect 

impacts on environmental justice populations.
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RESOURCE AREA BUILD ALTERNATIVE - THREE ADDITIONAL COMPLETE STREET CONNECTIONS, 

KALISPELL TRAIL REALIGNMENT, 

AND NORTHEAST TRAILHEAD CONNECTION

NO-BUILD ALTERNATIVE

Mitigation/Minimization/BMPs: Signed detours and alternative access routes to 

residences and businesses would be provided during construction, and BMPs, such 

as watering methods and limiting idle times, to control dust and emissions would 

be implemented. Warning or stop signs would be installed at the road crossings, 

and curb bump outs are proposed to reduce the distance that pedestrians must 

cross roads. A Traffic and Pedestrian Control Plan would be submitted by the 

contractor and approved by the City’s Public Works Department for all work within 

the public ROW. The latest edition of the Manual on Uniform Traffic Control 

Devices would be followed to create the plan.

Relocations Construction Impacts: 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.

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. Because the northeast trailhead connection would be 

constructed on vacant land, no construction impacts are anticipated.

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

Avenue WN would be completed within either BNSF or City ROW. There would be 

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

loss of approximately 10 parking spaces at the Mall; the 3rd Avenue WN complete 

street would result in the loss of approximately 2 to 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 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, 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

No relocations or buy-outs.
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RESOURCE AREA BUILD ALTERNATIVE - THREE ADDITIONAL COMPLETE STREET CONNECTIONS, 

KALISPELL TRAIL REALIGNMENT, 

AND NORTHEAST TRAILHEAD CONNECTION

NO-BUILD ALTERNATIVE

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: FRA requires the Project Sponsor (the City) to 

comply with the Uniform Relocation Assistance and Real Property Acquisition 

Policies Act of 1970 (Uniform Act), Montana state law, and the City’s own adopted 

policies and procedures to protect the interests of current landowners or 

landowners’ leases. The City would provide compensation and assistance in 

relocations consistently and equitably in accordance with applicable state and 

federal laws and procedures. Eligible individuals, businesses, or organizations may 

receive relocation benefits to minimize hardship and provide the assistance 

necessary to accomplish this consistently.

During final design, 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 as a result of the 

1st and 4th Avenue WN complete streets. The two to four parking spaces that 

would be lost at the private business as a result of the 3rd Avenue WN complete 

street would not require mitigation, as they are currently located in public ROW. 

An agreement would be established between the City and business owners at the 

intersections of US Highway 2 and 1st, 3rd, and 4th Avenue WN to address any net 

loss of parking spaces as a result of the approach relocation(s). The potential 

Kalispell Trail realignment would allow the Mall to construct additional parking 

spaces, which could provide mitigation for potential loss of parking due to 

implementation of one or more of the complete street options. The northeast 

trailhead connection would require an agreement between the City and MDT.
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RESOURCE AREA BUILD ALTERNATIVE - THREE ADDITIONAL COMPLETE STREET CONNECTIONS, 

KALISPELL TRAIL REALIGNMENT, 

AND NORTHEAST TRAILHEAD CONNECTION

NO-BUILD ALTERNATIVE

Hazardous Waste Construction/Operation Impacts: Considering the design and planned construction 

activities associated with the potential complete streets, Kalispell Trail 

realignment, and northeast trailhead connection, it is not anticipated that 

hazardous materials or hazardous wastes would be present in amounts or locations 

that would pose an unacceptable risk to the general public or natural resources. 

Ground-clearing activities would be shallow and would not reach the groundwater.

In addition, since groundwater flow at the City Service Valcon LUST/UST site is 

toward the south-southwest, away from the Project Area, no impacts on, or from, 

this site are anticipated from the Build Alternative. Construction activities may 

require the use or removal of small amounts of hazardous materials (e.g., cleaning 

agents, lubricants, fuels, solvents, fertilizers, asphalt, ballast) and may result in the 

generation of hazardous waste (e.g., oily rags, used chemical containers, chemical 

waste, used oil). Considering the purpose, design, and operation activities for the

complete streets, Kalispell Trail, and northeast trailhead connection, it is not 

anticipated that hazardous materials or wastes would be present in amounts or 

locations that would pose an unacceptable risk to public health or the 

environment. 

Mitigation/Minimization/BMPs: In the event that previously unknown 

contaminants are discovered during construction or a spill occurs during 

construction, work would cease until the National Response Center (1-800-424-

8002) has been notified by the contractor. If contamination is encountered, the 

MTDEQ would also be notified. Any contaminated soil that is encountered would 

be temporarily stockpiled and sampled to determine disposal requirements. 

Contractors would obtain a MPDES permit and implement and follow a SWPPP and 

SPCC Plan. All hazardous wastes generated would be handled in accordance with 

the RCRA Subtitle C waste management program and the requirements and 

regulations of the MTDEQ.

No impacts.

Cumulative and Indirect Impacts Temporary, negligible, cumulative effects on air quality, noise and vibration, and 

traffic and transportation would be expected from construction activities. Indirect 

impacts on land use, traffic and transportation, socioeconomics and environmental 

No cumulative or indirect impacts.
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RESOURCE AREA BUILD ALTERNATIVE - THREE ADDITIONAL COMPLETE STREET CONNECTIONS, 

KALISPELL TRAIL REALIGNMENT, 

AND NORTHEAST TRAILHEAD CONNECTION

NO-BUILD ALTERNATIVE

justice, and relocations could be expected from potential induced growth

throughout the Core Area. Beneficial, cumulative impacts on traffic and 

transportation could be expected from improvements onto the overall 

transportation system and increase in accessibility in the region, and beneficial, 

cumulative impacts on socioeconomics and environmental justice could be 

expected from additional jobs, increased community cohesion, and increased 

safety. 

Mitigation/Minimization/BMPs: None.

Key: NAAQS = National Ambient Air Quality Standards; BMPs = best management practices; USEPA = US Environmental Protection Agency; AADT = annual average daily traffic; MDT = Montana Department of Transportation; ROW 

= right-of-way; BNSF = Burlington Northern Santa Fe; UST = underground storage tank; LUST = leaking underground storage tank; MTDEQ = Montana Department of Environmental Quality; MPDES = Montana Pollutant Discharge 

Elimination System; SWPPP = Stormwater Pollution Prevention Plan; SPCC = Spill Prevention, Control, and Countermeasure; RCRA = Resource Conservation and Recovery Act
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3 . 3 A i r Q u a l i t y

3.3.1 Affected Environment

Criteria pollutants tracked under the USEPA National Ambient Air Quality Standards (NAAQS) include sulfur 

dioxide (SO2), particulate matter (PM), nitrogen dioxide (NO2), ozone (O3), lead (Pb), and carbon monoxide (CO). 

Montana has adopted the NAAQS and has set additional air quality standardsfor hydrogen sulfide (H2S), fluoride

in forage, and settleable PM, as well as visibility standards.

The USEPA utilizesthe following classifications for each of the six criteria pollutants: attainment, nonattainment, 

maintenance, and unclassifiable. As of March 31, 2019, the USEPA has determined that Kalispell is in 

nonattainment for PM10. Kalispell and Flathead County are in attainment for all other NAAQS (USEPA 2019).

The USEPA originally designated Kalispell as a nonattainment area for PM10 in 1987. Five sources were identified 

as contributing to the PM10 pollution levels in Kalispell, including vehicle exhaust, road dust, prescribed burning,

residential wood burning, and industry. Measures were developed to address each source in the USEPAapproved State Implementation Plan (Federal Register Vol. 61, No. 54, 19 March 1996). Since then, Kalispell has 

shown a continued reduction in annual tons of PM10, as well as a decline in measured 24-hour ambient air 

concentrations of PM10 (MTDEQ 2018a).

The MTDEQ has developed local air quality programs to regulate residential wood burning and road dust (the 

primary sources of particulate air pollution in Montana), as well as other minor sources of air pollution. In 

addition, the MTDEQ has implemented a permitting program for smaller sources of pollution, and in some cases, 

certain emission controls to ensure that such sources of air pollution are equipped with the best emissioncontrol technology available (MTDEQ Undated). 

3.3.2 Environmental Consequences

3.3.2.1 No-Build Alternative

The No-Build Alternative would result in no changes to current air quality within the region; however, traffic 

conditions would remain the same, and automobiles would continue to idle due to limited access, poor traffic 

circulation, and lack of street connections, further contributing emissions. 

3.3.2.2 Build Alternative

The Build Alternative would not cause or contribute to a violation of any NAAQS, increase the frequency or 

severity of NAAQS violations, delay timely attainment of the NAAQS, or expose sensitive receptors to 

substantially increased PM concentrations. 

Construction Impacts

Construction and ground-disturbing activities would result in temporary emissions of criteria pollutants and 

fugitive dust. Fugitive dust emissions from construction activities would be the greatest during initial site 

preparation and would vary from day to day, depending on the construction phase, level of activity, and 

prevailing weather conditions. All emissions from construction activities would be temporary in nature.

Trucks and heavy construction equipment would temporarily generate minor amounts of emissions of PM, SO2, 

NO2, CO, and volatile organic compounds. Emissions would be limited to the immediate Project Area and are 
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not anticipated to increase the frequency or severity of NAAQS violations or delay timely attainment of the 

NAAQS, and would be consistent with conformity regulations.

Operational Impacts

Vehicle idling due to limited access, poor traffic circulation, and lack of street connections would decrease, 

further reducing emissions. In addition, adding sidewalks and pedestrian pathways through the area 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. 

There would be no long-term, significant, adverse impacts on air quality from construction or operation of the 

Build Alternative.

3.3.3 Mitigation

The minimization measures, mitigation measures, and BMPs are the same as those included in the 2017 FONSI

and are summarized as follows:

 BMPs to control fugitive dust, such as water spraying, would be implemented as needed. 

 BMPs, such as using vehicular emission control equipment (e.g., catalytic converters) and limiting 

construction equipment idle time, would be followed as feasible to minimize impacts. 

 All construction equipment must satisfy USEPA emission standards for nonroad engines.

1

3 . 4 N o i s e a n d V i b r a t i o n

Environmental noise is characterized by A-weighted decibels (dBA), which best replicate how sound is received 

by the human ear. The Federal Transit Administration (FTA) has outlined noise-sensitive land uses, including the 

following (FTA 2006):

 Category 1 – parks and recreation areas. Tracts of land where quiet is an essential element in their 

intended purpose. This category includes lands set aside for serenity and quiet, such as outdoor 

amphitheaters and concert pavilions, National Historic Landmarks with significant outdoor use, recording 

studios, and concert halls.

 Category 2 – residences and buildings where people normally sleep. This category includes homes (e.g., 

single-family, multi-family, and mobile homes), hospitals, and hotels where a nighttime sensitivity to 

noise is assumed to be of utmost importance.

 Category 3 – institutional land uses with primarily daytime and evening use. This category includes 

schools, libraries, theaters, and churches where it is important to avoid interference with activities, such

as speech, meditation, and concentration on reading material. Places for meditation or study associated 

with cemeteries, monuments, museums, campgrounds, and recreational facilities and certain historical 

sites and parks are also included in this category. 

 

1

For emissions standards for nonroad engines and vehicles, such as large spark-ignition engines, compression-ignition engines, and 

locomotives, refer to the USEPA Emission Standards for Nonroad Vehicles at https://www.epa.gov/emission-standards-referenceguide/epa-emission-standards-nonroad-engines-and-vehicles.
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3.4.1 Affected Environment

As discussed in the 2017 EA, Big Sky Acoustics, LLC completed a Detailed Noise Analysis and General Vibration 

Assessment in 2017 that considered noise receivers of interest within 1,000 feet of the Project Area. Category 

2 and Category 3 noise-sensitive land uses were identified in the noise Study Area considered in the 2017 noise 

analysis; no Category 1 noise-sensitive land uses were identified. Since the Project Area assessed in the 2017 EA

encompassed the three complete street options, Kalispell Trail realignment, and northeast trailhead connection

analyzed in this SEA, additional noise and vibration analyses were not conducted for this SEA.

3.4.2 Environmental Consequences

3.4.2.1 No-Build Alternative

The No-Build Alternative would not result in changes or impacts on current noise levels within the noise and 

vibration Study Area.

3.4.2.2 Build Alternative

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 (e.g., bulldozers, front-end loaders, excavators, 

dump trucks, scrapers, and compactors), the area that the action would occur in, and the distance from the 

noise source.

Although noise level would temporarily be above baseline levels throughout construction during the daytime 

hours, no significant impacts are anticipated.

Operational Impacts

Upon completion of construction, the business owners and residents along 4th, 3rd, or 1st Avenue WN, north 

of the existing rail corridor would experience a slight increase in vehicular traffic noise once a connection street 

is constructed; however, this noise is expected to be offset by removal of the railroad tracks and associated 

noise from trains and train horns. In addition, any noise generated as a result of increased vehicular traffic on 

one or more complete streets would be consistent with the existing noise in the surrounding area. The Kalispell 

Trail realignment and northeast trailhead connection would not have any additional operational noise impacts.

The relocation of freight rail operations as a result of Phase I and Phase II of the Project is anticipated to result 

in an overall decrease in noise impacts in the Core Area. 

3.4.3 Mitigation

As stated in the 2017 EA, the 2017 noise analysis did not predict any severe, long-term impacts resulting from 

noise or vibration requiring mitigation to sensitive noise receptors. However, the same mitigation measure that 

were included in the 2017 FONSI apply to this SEA: Construction would not take place from 10:00 p.m. to 7:00 

a.m. when sensitivity to noise is more pronounced due to lower levels of background noise. Additionally, 

construction activities would be restricted to weekdays, and would not occur on weekends, unless special 

permission is granted by the Kalispell Public Works Department or MDT.
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3 . 5 L a n d U s e

The Study Area assessed in the 2017 EA encompassed the three complete street options, Kalispell Trail

realignment, and northeast trailhead connection analyzed in this SEA; therefore, land use and zoning evaluated 

and discussed in the 2017 EA are similar for this SEA.

3.5.1 Affected Environment

The three complete street options, Kalispell Trail realignment, and northeast trailhead connection are located 

in the Flathead Valley of Montana, in the heart of the Northern Rocky Mountains Resource Region, just west of 

the Continental Divide. The valley contains glacial lakes and is flanked by forested, rugged, high elevation 

mountains with considerable climatic diversity. The three complete street options, Kalispell Trail realignment, 

and northeast trailhead connection are located in the urban setting of downtown Kalispell (NRCS 2006).

The three complete street options and the Kalispell Trail realignment are located in an area zoned as B-3. This 

area is defined as a business district that provides areas for development of congregated community shopping 

areas to serve neighborhoods. Some of the permitted uses of this area include: accessory apartments; 

automobile parking, service stations, and washing and waxing facilities; medical/dental clinics; day care centers; 

offices; restaurants; retail stores; shopping malls; and parks and publicly owned recreational facilities. Some of 

the conditional uses of this area include: duplex, multi-family, and mixed-use dwellings; health clubs; 

hotels/motels; taverns; and bowling alleys (Flathead County 2019a, Flathead County 2019b).

The northeast trailhead connection is located in an area zoned as B-2. This area is defined as 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. This district also serves the general needs of the tourist and 

traveler. Some of the permitted uses include accessory apartments, automobile (new and used) and accessory 

sales, bus station, day care center, food stores, hotels/motels, duplex and multi-family dwelling, parks and 

publicly owned recreational facilities, public transportation shelter stations, retail sales, and restaurants. The 

area is also under the EEO EVERGREEN ENTERPRISE OVERLAY district. This is a zoning district to diversify 

allowable businesses along the Evergreen commercial corridor while maintaining existing zoning by overlaying 

B-2 General Business or B-3 Community Business zoning districts with one additional permitted use. The one 

additional permitted use is light assembly and manufacturing, fabrication and processing, repairing, packing, 

storage facilities, warehousing, and distribution of products and equipment provided that such uses do not 

produce objectionable impacts beyond the lot lines and do not involve materials that are explosive, hazardous,

or toxic (Flathead County 2019a, Flathead County 2019b).

The natural land use surrounding the Study Area is dominated by developed lands, with croplands and 

agricultural areas to the north, west, and northeast. Agricultural land consists primarily of grasslands, utilized as 

sheep, horse, and/or cow pastures throughout the past 60 years. The riparian areas of the Flathead and 

Stillwater rivers exist to the north and east of the Study Area (USDA 2019). 

Details regarding the three complete street options, Kalispell Trail realignment, and northeast trailhead 

connection analyzed in this SEA are provided below:

 4th Avenue WN – The existing road consists of an approximate 40-foot-wide, asphalt-paved, 2-lane 

roadway that lacks sidewalks and gutters within 60 feet of ROW. Along this street, from West Montana 

Street south to the dead end, there are commercial buildings, an automobile repair shop, and residential 
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properties. Railroad Street West runs west to east, adjacent to the north of the railroad corridor, until it 

turns to run north between 3rd and 4th Avenue WN.

 3rd Avenue WN – The existing road consists of an approximate 40-foot-wide, asphalt-paved, 2-lane 

roadway that lacks sidewalks and gutters within 60 feet of ROW. Along this roadway, from West Montana 

Street south to the dead end, there are commercial buildings, a warehouse, and residential properties. 

 1st Avenue WN – The existing road consists of an approximate 40-foot-wide, asphalt-paved, 2-lane 

roadway that lacks sidewalks and curb and gutter within 60 feet of ROW. Along this roadway, from West 

Montana Street south to the dead end, there is a vacant, gravel lot; commercial buildings; and a 

warehouse. 

 Kalispell Trail Realignment – This slight modification to the Kalispell Trail alignment would occur at the 

northwest corner of the Mall, between 4th Avenue WN and 5th Avenue WN, a distance of approximately 

345 feet. The Kalispell Trail would cross 5th Avenue WN at the same location as originally planned in the 

2017 EA. This modification would allow for additional parking at the Mall, require the Mall’s use of the 

railbanked land, and require the placement of a small segment of the Kalispell Trail on Mall property. All 

property is currently vacant with gravel or has railroad infrastructure (e.g., tracks).

 Northeast Trailhead Connection – The northeast trailhead connection would occur at the northeastern 

portion of the limits of Phase II of the Project, and would consist of connecting the Kalispell Trail with the 

Flathead Drive/US Highway 2 signalized intersection, a distance of approximately 300 feet. This 

connection would be through vacant land owned by MDT. 

3.5.2 Environmental Consequences

3.5.2.1 No-Build Alternative

There would be no land use changes or impacts associated with the No-Build Alternative, and all current land 

uses would remain as they exist today.

3.5.2.2 Build Alternative

Construction Impacts

No impacts on land use from construction of at least one complete street, the Kalispell Trail realignment, or the 

northeast trailhead connection would be expected, as the zoning would not change from the current 

designations of B-3 and B-2.

Operational Impacts

Construction of at least one complete street along 4th, 3rd, or 1st Avenue WN would provide increased access 

to the retails areas and undeveloped and underdeveloped lots north of the railroad corridor. It 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. The northeast trailhead connection would 

not have any impact on land use.
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3.5.3 Mitigation

No significant, adverse impacts on land use are anticipated due to the construction or operation of at least one 

complete street, the Kalispell Trail realignment, or the northeast trailhead connection; therefore, no mitigation 

is proposed.

3 . 6 E c o l o g i c a l S y s t e m s

The Study Area for potential impacts on ecological systems assessed in the 2017 EA encompassed the three

complete street options, Kalispell Trail realignment, and northeast trailhead connection analyzed in this SEA. 

There is no substantial change in the affected environment for general wildlife, fish, and vegetation species, and

potential impacts and mitigation measures described in the 2017 EA for general wildlife, fish, and vegetation 

species would be similar for this SEA. Therefore, potential impacts on general wildlife, fish, and vegetation 

species are not re-assessed in this SEA. 

The affected environment, potential impacts, and mitigation measures for threatened and endangered species 

described in the 2017 EA are also similar for this SEA; however, an additional species was identified during 

reevaluation of the Project Area. According to an inquiry through the US Fish and Wildlife Service (USFWS)

Environmental Conservation Online Service Information for Planning and Consultation (IPaC) system (USFWS 

2019) and the USFWS Endangered, Threatened, Proposed, and Candidate Species List for Flathead County, 

Montana (USFWS 2018), the wolverine (Gulo gulo luscus) has the potential to occur within Flathead County. The 

wolverine is proposed for federal listing as a threatened species; therefore, potential effects to this species must 

be considered in accordance with Section 7 of the Endangered Species Act (ESA). Therefore, this section only 

describes the existing conditions, potential impacts, and mitigation measures for the wolverine. All other 

information regarding ecological systems within the Project Area can be found in the 2017 EA.

3.6.1 Affected Environment

In the contiguous United States, wolverine habitat is restricted to high-elevation areas in the west. Wolverines 

inhabit habitats with near-arctic conditions wherever they occur. Wolverines select habitat areas that are cold 

and receive enough winter precipitation to reliably maintain deep persistent snow late into the warm season. 

In the southern portion of the species’ range, where ambient temperatures are warmest, wolverine distribution 

is restricted to high elevations, while at more northern latitudes, wolverines are present at lower elevations. 

Wolverines have large spatial requirements. The availability of food is likely the primary factor in determining 

wolverine movements and home range. Wolverines are opportunistic feeders, consuming a variety of foods 

depending on availability. They primarily scavenge carrion, but also prey on small animals and birds and eat 

fruits, berries, and insects. The primary threat to the wolverine is from habitat and range loss due to climate 

warming (USFWS Undated).

3.6.2 Environmental Consequences

3.6.2.1 No-Build Alternative

The No-Build Alternative would not impact the wolverine because Phase II of the Project would not be 

implemented, and therefore, there would be no change in existing conditions.
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3.6.2.2 Build Alternative

Due to the urban nature and location of the Project and lack of suitable habitat within the Project Area, the 

Build Alternative is anticipated to have no effect on the wolverine.

3.6.3 Mitigation

The minimization measures, mitigation measures, and BMPs are the same as those included in the 2017 FONSI

and are summarized as follows:

 Measures to minimize impacts on wildlife (including threatened and endangered species) would include 

the appropriate BMPs, such as silt fencing and reseeding disturbed areas, to control soil erosion and 

minimize the potential for runoff to affect adjacent waterbodies.

 Any storage bins containing liquids would be sealed to prevent wildlife from accessing them, and proper 

speed limits and restrictions would be followed on roadways to prevent wildlife-vehicle collisions.

 To minimize the effects of overhead utility lines on birds in flight, any overhead lines impacted or installed 

would be marked with bird diverters, and new placements or extensions of utilities would be installed 

underground.

 Should eagle nests be discovered during construction of the complete street(s), Kalispell Trail 

realignment, or northeast trailhead connection, to avoid disturbing nesting bald eagles, the USFWS 

recommends (1) keeping a distance between the activity and the nest (i.e., 330 to 660 feet distance 

buffers depending on visuals from the nest);2(2) maintaining forested or natural areas between the 

activity and around nest trees; and (3) avoiding certain activities, such as tree removal, during the 

breeding season (USFWS 2007). 

 Per Flathead County Weed Control District Revegetation Policy, disturbed areas would be reseeded and 

reclaimed as soon as possible after construction with a Flathead County Weed Control District-approved 

seed mix3 and shall occur after completion of the complete street(s), either between April 15 and June 

15 or October 1 and November 15.

3 . 7 T r a f f i c a n d T r a n s p o r t a t i o n

Information pertaining to rail and bus traffic and transportation; traffic volumes, transportation issues, and 

safety concerns on major roadways and minor collector roadways; and bicycle and pedestrian traffic within the 

Study Area are provided in the 2017 EA.

 

2 Appropriate buffers are based on topography, ecological characteristics of surrounding area, visibility of activities from the nest, and the 

nature of the proposed activity.

3 Certified weed seed-free blend absent of legumes and broadleaves (so as not to attract deer) that contains a mixture of 34 percent 

Potomac orchard grass, 33 percent smooth brome grass, and 33 percent fawn tall fescue must be used. Grass seed percentages should not 

exceed + or – 2 percent variance. Orchard grass shall be of minimum 85 percent germination, smooth brome shall be a minimum of 95 

percent germination, and tall fescue shall be a minimum of 95 percent germination (Flathead County 2017).
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3.7.1 Affected Environment

A desktop study of traffic for the three complete street options was conducted by KLJ in February 2019 and 

documented in the Memorandum for the Kalispell Trail and Complete Streets Traffic (May 2019) (see Appendix 

C). The memorandum is summarized in this section.

The most current year of traffic data available from the MDT Interactive Traffic Map is from 2017. Current traffic 

volumes on all of the potential complete street options are low (i.e., approximately 500 to 1,000 annual average 

daily traffic [AADT]). Table 2 provides a summary of the AADT volumes on existing roadways in the immediate 

vicinity of the three complete street options analyzed in this SEA. These volumes will change over time, and it is 

assumed the increase in volumes in the Core Area would generally reflect the historic background growth of 

traffic in downtown Kalispell. Traffic has historically increased through the downtown area at a rate of 

approximately 1.8 percent per year. 

Table 2, 2017 MDT Annual Average Daily Traffic

TRAFFIC COUNT LOCATION AADT 2017 NUMBER OF LANES

West Center Street

Southwest of the Mall 7,150 2

South of the Mall 10,230 4

US Highway 2

West of 8th Avenue WN 19,975 4

West of 4th Avenue WN 19,000 4

North of 1st Avenue WN 20,110 4

East of US Highway 93/Main Street 27,050 4

5th Avenue WN

Northwest of the Mall 8,575 2

West of the Mall 7,450 2

US Highway 93/Main Street

Northeast of the Mall 24,460 5

East of the Mall 26,000 5

1st Avenue East

Northeast of the Mall 5,150 3

Source: MDT Interactive Traffic Map 2017

Key: AADT = annual average daily traffic

Currently, there is restricted north-south traffic circulation in the Core Area due to only six at-grade railroad 

crossings across the nearly two-mile width of the City. Patrons traveling to the retail areas north of the railroad 

corridor and Mall are forced to travel around the Mall using 5th Avenue WN, West Center Street, and US 

Highway 93, as 4th, 3rd, and 1st Avenue WN are dead-ended where the Kalispell Trail will be constructed on the 

existing railroad corridor.
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3.7.2 Environmental Consequences

3.7.2.1 No-Build Alternative

Under the No-Build Alternative, the Kalispell Trail would not be constructed, and there would be no alternative 

means of non-motorized transportation (e.g., walking, biking) or complete street connections in the Core Area. 

Bicyclists and pedestrians would not benefit from the added efficiency and safety of a connected trail network 

or improved street connections. North-south traffic in the Core Area would remain restricted by the limited 

number of connections, and traffic circulation would not be improved. Patrons traveling to the Mall and other 

retail areas north of the Mall would still need to travel around the Mall using 5th Avenue WN, West Center 

Street, and US Highway 93. Accessibility and connectivity to the Mall and other retail areas and underdeveloped 

and undeveloped lots north of the railroad corridor would not be increased.

3.7.2.2Build Alternative

Construction Impacts

Construction equipment and machinery may temporarily add more traffic and congestion to the roadways in 

the immediate vicinity of the three complete street options, Kalispell Trail realignment, and northeast trailhead 

connection; though final routes for equipment and the maintenance of traffic plans have not been yet 

determined by the City. Major arterials, such as US Highway 2 and US Highway 93, are anticipated to be used 

by heavy equipment mobilizing to the construction sites and staging areas.

Residents and commercial business owners could experience temporary delays and detours during construction 

activities. In addition, there could be potential delays and detours along US Highway 2, Flathead Drive, 5th 

Avenue WN, West Center Street, and US Highway 93 and in the Mall parking lot during construction.

Operational Impacts

Beneficial impacts would be expected, as operation of at least one complete street would increase the number 

of north-south connections in the Core Area and improve circulation (specifically in the vicinity of US Highway 

2, 5th Avenue WN, West Center Street, and US Highway 93). Patrons traveling to the Mall and surrounding retail 

uses would be able to use 4th, 3rd, or 1st Avenue WN for more direct access. Access and connectivity to the US 

Highway 2/US Highway 93 area and underdeveloped and undeveloped lots north of the railroad corridor would 

also be increased. Completion of at least one street connection with improvements, including sidewalks, would 

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

corridor).

Adverse impacts could be expected on existing residents and business owners along US Highway 2 and the 

complete street(s), as there would be a slight increase in AADT. With the increase in accessibility and 

connectivity to the US Highway 2/US Highway 93 area and 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. This would 

add to the overall increase AADT in the immediate vicinity. Traffic on any one of the complete street options is 

estimated to increase by approximately 140 vehicles during the evening peak hours (i.e., 3:00 p.m. to 6:00 p.m.), 

should that complete street facility be implemented. The following is a breakdown of the estimated additional 

140 vehicles at the intersection of US Highway 2 and the complete street options considered in this SEA. This 

slight increase in traffic would not exceed the capacity of the existing roads.
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 4th Avenue WN/US Highway 2 Intersection

> Eastbound, turning right onto 4th Avenue WN off of US Highway 2 – 42 vehicles per hour

> Westbound, turning left onto 4th Avenue WN off of US Highway 2 – 42 vehicles per hour

> Northbound, turning left onto US Highway 2 off of 4th Avenue WN – 28 vehicles per hour

> Northbound, turning right onto US Highway 2 off of 4th Avenue WN – 28 vehicles per hour

 3rd Avenue WN/US Highway 2 Intersection

> Eastbound, turning right onto 3rd Avenue WN off of US Highway 2 – 42 vehicles per hour

> Westbound, turning left onto 3rd Avenue WN off of US Highway 2 – 42 vehicles per hour

> Northbound, turning left onto US Highway 2 off of 3rd Avenue WN – 28 vehicles per hour

> Northbound, turning right onto US Highway 2 off of 3rd Avenue WN – 28 vehicles per hour

 1st Avenue WN/US Highway 2 Intersection

> Eastbound, turning right onto 1st Avenue WN off of US Highway 2 – 25 vehicles per hour

> Westbound, turning left onto 1st Avenue WN off of US Highway 2 – 59 vehicles per hour

> Northbound, turning left onto US Highway 2 off of 1st Avenue WN – 17 vehicles per hour

> Northbound, turning right onto US Highway 2 off of 1st Avenue WN – 39 vehicles per hour

There would also be a loss of parking spaces, depending on which complete street option(s) is selected and 

implemented by the City: the 1st Avenue WN complete street would result in the loss of approximately 10 

parking spaces at the Mall; the 3rd Avenue WN complete street would result in the loss of approximately 2 to 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 8 parking spaces at the Mall. However, 

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.

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 crosssections. However, 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 bicycle access and safety. 

3.7.3 Mitigation

The minimization and mitigation measures are similar to those included in the 2017 FONSI and are summarized 

as follows:

 Temporary delays and detours would not occur at every street, intersection, retail driveway, or Mall 

driveway simultaneously; construction would be staggered. 

 Access to all businesses and residences would be maintained throughout construction. 

 Detours would be signed and marked clearly for travelers, and a Work Zone Safety and Mobility 

Transportation Management Plan and Maintenance of Traffic Plan following MDT guidelines (MDT 2015) 

would be developed and adhered to by the City’s contractor. 
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 The public would be notified in advance of closures or detours through means of local news stations, 

newspapers, and radio announcements.

 To determine if signalization and/or turn lanes would be warranted at the completed street connections, 

future traffic signal warrant studies on the street connections would be completed by the City after 

construction. If the traffic signal warrant studies indicated a need for signalization and/or turn lanes, 

traffic signals and appropriate lane configurations would be installed in the future by the City, separate 

from this Project.

An agreement would be established between the City and Mall owners to 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. The 

two to four parking spaces that would be lost at the private business as a result of the 3rd Avenue WN complete 

street would not require mitigation, as they are currently located in public ROW. An agreement would be 

established between the City and business owners at the intersections of US Highway 2 and 1st, 3rd, and 4th 

Avenue WN to address any net loss of parking spaces as a result of the approach relocation(s).

The Kalispell Trail realignment would have the same mitigation measures as outlined for the Kalispell Trail in the 

2017 FONSI. In addition, this realignment could allow the Mall to construct additional parking, which could 

provide potential mitigation for the loss of parking associated with implementation of one or more of the 

complete street options.

The northeast trailhead connection would require an agreement between the City and MDT, the owner of the 

vacant property the trailhead connection would traverse.

3 . 8 S o c i o e c o n o m i c s a n d E n v i r o n m e n t a l J u s t i c e

The Study Area assessed in the 2017 EA encompassed the three complete street options, Kalispell Trail

realignment, and northeast trailhead connection analyzed in this SEA; therefore, socioeconomic and 

environmental justice conditions evaluated and discussed in the 2017 EA are similar for this SEA.

3.8.1 Affected Environment

Estimated demographic and housing, employment and income, and race data for the City of Kalispell and State 

of Montana were derived from the US Census Bureau and are summarized in Tables 3, 4, and 5, respectively.

Table 3, Demographic and Housing Data

LOCATION 2010 

POPULATION

2017 

POPULATION

POPULATION 

INCREASE

INDIVIDUALS 65 YEARS

AND OLDER (2017)

VACANT HOUSING 

UNITS (2017)

City of 

Kalispell

19,927 21,992 10.4% 3,458 599

State of 

Montana

989,415 1,029,862 4.1% 176,138 81,124

Sources: US Census Bureau 2010, US Census Bureau 2017
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Table 4, Employment and Income Data

LOCATION PER CAPITA 

INCOME (2017)

MEDIAN HOUSEHOLD 

INCOME (2017)

UNEMPLOYMENT 

RATE (2017)

PERCENT BELOW 

POVERTY LEVEL (2017)

PREDOMINANT 

INDUSTRY (2017)

City of 

Kalispell

$23,485 $44,800 2.6% 9.7% Office and 

Administrative 

Support Occupations 

(20.3%)

State of 

Montana

$28,706 $50,801 3.0% 9.1% Management, 

Business, and 

Financial 

Occupations (15.4%)

Sources: US Census Bureau 2010, US Census Bureau 2017

Table 5, Race Data

LOCATION PREDOMINANT 

MAJORITY (2010)

PREDOMINANT 

MINORITY (2010)

PREDOMINANT 

MAJORITY (2017)

PREDOMINANT 

MINORITY (2017)

City of Kalispell White (94.2%) American Indian and 

Alaska Native (1.3%)

White (94.8%) American Indian and 

Alaska Native (1.1%)

State of 

Montana

White (89.4%) American Indian and 

Alaska Native (6.3%)

White (89.0%) American Indian and 

Alaska Native (6.5%)

Sources: US Census Bureau 2010, US Census Bureau 2017

From 2010 to 2017, the population of Kalispell grew by an estimated 10.4 percent, which is 6.3 percentage 

points higher than the entire State of Montana. Median household and per capita incomes in Kalispell are lower 

than the statewide averages, and the percent below the poverty level is slightly higher than the statewide

average; however, the unemployment rate in Kalispell is slightly lower than the statewide average. In 

accordance with the definition of environmental justice population (see Appendix A), the minority population 

in the City of Kalispell is not meaningfully greater, or at least 10 percentage points higher, than for the entire 

State of Montana. Therefore, there are no environmental justice populations within the Study Area.

Along 4th, 3rd, and 1st Avenue WN, from West Montana Street south to the dead ends at the existing railroad 

corridor, there are existing commercial and residential properties, and the Mall is located adjacent to the south

or the corridor. Immediately north of the Mall, there are approximately 4.0 acres of undeveloped lots and 3.9 

acres of underdeveloped lots suited for redevelopment. Currently, potential users and businesses avoid locating 

to lots north of the Mall, because of restricted access and general appeal of the area. None of the at-grade 

crossings provide adequate pedestrian facilities or safety features, such as crossing gates across the sidewalks.

The Kalispell Trail realignment is within the same area, between 4th Avenue WN and 5th Avenue WN. The 

northeast trailhead connection would be within a vacant lot, adjacent to the Flathead Drive/US Highway 2

signalized intersection, which has pedestrian features.

3.8.2 Environmental Consequences

3.8.2.1 No-Build Alternative

The No-Build Alternative would have no significant impacts on demographics, economics, community cohesion, 

or businesses within the community. However, neither Kalispell nor the region of northwest Montana would 

capitalize on the added economic and trade value of creating jobs and attracting new developers/development
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to the Kalispell Trail areas and along 4th, 3rd, 2nd, and 1st Avenue WN; W Montana Street; and US Highway 2. 

The general appeal of the area would not be improved, the lack of connectivity in the community and visibility 

of existing businesses north of the Mall would continue, social benefits to the community would not be realized, 

and disconnection in the community would continue. 

There would be no direct or indirect impacts on environmental justice populations, because there are no 

environmental justice populations within the Study Area.

3.8.2.2 Build Alternative

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 4th, 3rd, or 1st 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 and congestion. Fugitive dust from grounddisturbing 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. Individuals 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.

Operational 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. Operation of at least one complete street along 4th, 3rd, or 1st Avenue WN would improve the general 

appeal of the area and spur development along 4th, 3rd, 2nd, and 1st Avenue WN; 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 payroll taxes and sales receipts.

Traffic circulation and connectivity would also be improved with construction of at least one complete street, 

the Kalispell Trail realignment, and northeast trailhead connection. In addition, transportation options (e.g., 

walking and biking) would be created, connecting people and neighborhoods with jobs, services, and goods.

There would be no direct or indirect impacts on environmental justice populations, because there are no 

environmental justice populations within the Study Area.
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3.8.3 Mitigation

The minimization measures, mitigation measures, and BMPs are similar to those included in the 2017 FONSI and 

are summarized as follows:

 To minimize temporary delays due to construction activities, signed detours and alternative access routes 

to residences and businesses would be provided.

 BMPs, such as watering methods and limiting idle times, to control dust and emissions would be 

implemented during construction.

 To address pedestrian and bicyclist safety, warning or stop signs would be installed at the road crossings, 

and curb bump outs are proposed to reduce the distance that they must cross roads. 

 A Traffic and Pedestrian Control Plan would be submitted by the contractor and approved by the Public 

Works Department for all work within the public ROW. The latest edition of the Manual on Uniform 

Traffic Control Devices would be followed to create the plan.

3 . 9 R e l o c a t i o n s

3.9.1 Affected Environment

As discussed in the 2017 EA, BNSF owns or has rights along 1.6-miles of track through the Core Area. Through

the rail banking process, the City would purchase the necessary BNSF property and easements to construct the 

Kalispell Trail, completely within the acquired BNSF ROW. The City would also enter into agreements with 

adjacent property owners, including but not limited to the Mall and MDT to implement the complete streets, 

Kalispell Trail realignment, and northeast trailhead connection.

3.9.2 Environmental Consequences

3.9.2.1 No-Build Alternative

There would be no relocations or buy-outs associated with the No-Build Alternative, because Phase II of the 

Project would not be implemented.

3.9.2.2 Build Alternative

Construction Impacts

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. 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. Because the northeast trailhead connection would be constructed on vacant land, no construction 

impacts are anticipated. 

Operational Impacts

Construction of at least one complete street on 4th, 3rd, or 1st Avenue WN would be completed within either

BNSF or City ROW. There would be a loss of parking spaces: approximately 10 parking spaces at the Mall would 

be lost from the 1st Avenue WN complete street; approximately 2 to 4 parking spaces, which are currently 

located in the public ROW and being used for a private business would be lost from the 3rd Avenue WN complete 
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street; and approximately 8 parking spaces at the Mall would be lost from the 4th Avenue WN complete street.

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, it is not possible at this time to determine if there would be a net loss of parking 

spots at these business parking lots.

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.

3.9.3 Mitigation

The mitigation measures are similar to those included in the 2017 FONSI and are summarized as follows:

 FRA requires the Project sponsor to comply with the Uniform Act, state law, and the City’s own adopted 

policies and procedures to protect the interests of current landowners or landowners’ leases. 

 The City would provide compensation and assistance in relocations consistently and equitably in 

accordance with applicable state and federal laws and procedures. 

 Eligible individuals, businesses, or organizations may receive relocation benefits to minimize hardship 

and provide the assistance necessary to accomplish this consistently.

During final design, 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 as a result of the 1st 

and 4th Avenue WN complete streets. The two to four parking spaces that would be lost at the private business 

as a result of the 3rd Avenue WN complete street would not require mitigation, as they are currently located in 

public ROW. An agreement would be established between the City and business owners at the intersections of 

US Highway 2 and 1st, 3rd, and 4th Avenue WN to address any net loss of parking spaces as a result of the 

approach relocation(s).

The Kalispell Trail realignment would have the same mitigation measures as outlined for the Kalispell Trail in the 

2017 FONSI. In addition, this realignment could allow the Mall to construct additional parking, which could 

provide potential mitigation for the loss of parking associated with implementation of one or more of the 

complete street options. 

The northeast trailhead connection would require an agreement between the City and MDT, the owner of the 

vacant property the trailhead connection would traverse. 

3 . 1 0 H a z a r d o u s W a s t e

This section addresses the potential for hazardous materials and wastes and previously contaminated sites to 

occur in the Project Area associated with the three potential complete street options. It also addresses the 

potential for the Build Alternative to generate hazardous wastes. 

The Study Area for analysis of potential impacts due to hazardous wastes corresponds to the Project Area. This is 

because the Project Area corresponds to ground disturbance work and the potential to encounter hazardous 

materials during construction activities. The Study Area assessed in the 2017 EA encompassed the three 
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complete street options, Kalispell Trail realignment, and northeast trailhead connection analyzed in this SEA; 

therefore, hazardous materials and wastes and previously contaminated sites evaluated and discussed in the 

2017 EA are similar for this SEA.

3.10.1Affected Environment

As discussed in the 2017 EA, there are no recorded previous spills or hazardous waste sites within the Study 

Area associated with the Kalispell Trail. A review of the MTDEQ underground storage tank (UST) and leaking 

underground storage tank (LUST) databases revealed that there is one LUST/UST site adjacent to the west of 

the Kalispell Trail realignment (MTDEQ 2018b, MTDEQ 2019). 

The site, City Service Valcon LLC (Facility ID 15-01680), is located at 52 5th Avenue WN in the southwest quadrant 

of the 5th Avenue WN/Railroad Street W intersection, immediately north of the railroad corridor (see Figure 9).

City Service Valcon LLC is a service provider of fuel (wholesale and bulk), lubricants, and propane. The site is 

listed on the LUST database for a reported release that occurred on December 9, 1998 (Release ID 3612). 

According to the MTDEQ database, the release has not yet been resolved. The site is also listed on the UST 

database as having five active USTs and six inactive USTs (MTDEQ 2018b, MTDEQ 2019).

A report for this site was obtained from the MTDEQ: Annual Groundwater Monitoring Report for Valcon 

Distributing (2019). Review of the report revealed that there was a release of petroleum into the groundwater 

at this site (quantity unknown). Groundwater flow at the site is toward the south-southwest. Currently, there 

are six groundwater monitoring wells at the site, which are completed to a depth of approximately 15 to 20 feet 

below ground surface. Groundwater samples collected in 2018 revealed that natural attenuation is occurring, 

and the dissolved petroleum hydrocarbon plume is shrinking.

There are no other LUST or UST sites within immediate vicinity of the complete street options, Kalispell Trail 

realignment, or northeast trailhead connection. 
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Figure 9, City Service Valcon Site

3.10.2Environmental Consequences

3.10.2.1 No-Build Alternative

No impacts would be expected, as Phase II of the Project would not be constructed.

3.10.2.1 Build Alternative

Ground-clearing activities run the risk of encountering contaminated soils during construction. The release of 

such materials to the environment via air, water, and soil could adversely affect natural resources and human 

health and safety. Considering the design and planned construction activities for the complete streets, Kalispell 

Trail realignment, and northeast trailhead connection, it is not anticipated that hazardous materials or 

hazardous wastes would be present in amounts or locations that would pose an unacceptable risk to the general 

public or natural resources. Ground-clearing activities would be shallow and would not reach the groundwater.

In addition, since groundwater flow at the City Service Valcon site is toward the south-southwest, away from 

the Project Area, no impacts on, or from, this site are anticipated from the Build Alternative.

Construction of at least one complete street, the Kalispell Trail realignment, and the northeast trailhead 

connection may require the removal and/or use of small amounts of hazardous materials (e.g., cleaning agents, 

lubricants, fuels, solvents, fertilizers, asphalt, ballast) and may result in the generation of hazardous waste (e.g., 

oily rags, used chemical containers, chemical waste, used oil).

Considering the purpose, design, and operation activities of the complete streets, Kalispell Trail realignment,

and northeast trailhead connection, it is not anticipated that hazardous materials or wastes would be present 

in amounts or locations that would pose an unacceptable risk to public health or the environment. No 
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significant, adverse impacts from the use of hazardous materials or generation of hazardous wastes are 

anticipated.

3.10.3Mitigation

The minimization and mitigation measures, and BMPs are the same as those included in the 2017 FONSI and 

are summarized as follows:

 In the event that previously unknown contaminants are discovered during construction or a spill occurs

during construction, work would cease until the National Response Center (1-800-424-8002) has been 

notified by the contractor. 

 If contamination is encountered, the MTDEQ would also be notified. 

 Any contaminated soil that is encountered would be temporarily stockpiled and sampled to determine 

disposal requirements.

 Contractors would obtain a Montana Pollutant Discharge Elimination System (MPDES) permit and 

implement and follow a Stormwater Pollution Prevention Plan (SWPPP) and Spill Prevention, Control, and 

Countermeasure (SPCC) Plan.

 All hazardous wastes generated would be handled in accordance with the Resource Conservation and 

Recovery Act (RCRA) Subtitle C waste management program and the requirements and regulations of the 

MTDEQ.

3 . 1 1 C u m u l a t i v e a n d I n d i r e c t I m p a c t s

The Study Area for cumulative impacts assessed in the 2017 EA encompassed the three complete street options, 

Kalispell Trail realignment, and northeast trailhead connection analyzed in this SEA. For all of the resource areas 

(except air quality, noise and vibration, land use, ecological systems, traffic and transportation, socioeconomics 

and environmental justice, relocations, and hazardous waste) there is no substantial change in the existing 

conditions, and potential cumulative impacts and mitigation measures described in the 2017 EA would be similar 

for this SEA. Consistent with CEQ guidance (CEQ 1981), FRA and the City did not consider cumulative impacts on 

resources that were not adversely or permanently affected by the Build Alternative. Therefore, this cumulative 

impacts assessment only discusses potential cumulative and indirect impacts on air quality, noise and vibration, 

land use, traffic and transportation, socioeconomics and environmental justice, and relocations.

3.11.1Affected Environment

The affected environment for cumulative impacts includes past, present, and reasonably foreseeable future 

projects and actions planned within the vicinity of the complete street options, Kalispell Trail realignment, and 

northeast trailhead connection. Individually, these projects and actions can result in direct and/or indirect 

impacts; when combined, they can result in cumulative impacts.

MDT, in coordination with state and federal agencies, local and Tribal governments, metropolitan planning 

organizations, public agencies, citizens, and other interested parties, developed the Statewide Transportation 

Improvement Program (STIP). The STIP is developed in accordance with the requirements of 23 USC § 135 and 

lists transportation projects and needs for the State of Montana.

According to the 2016-2020 STIP (MDT 2016) and 2018-2022 STIP (MDT 2018), the following past, present, and 

reasonably foreseeable future projects and actions (with a budget over $1 million) are located within 50 miles 
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of the Project Area, in Flathead County.

4 None of these projects are within a 0.5-mile radius of the potential 

complete streets, Kalispell Trail realignment, or northeast trailhead connection.

 UPN-7884 SF 119-Slope Flatten S-206 – Location: S-206; Slope Flattening; FY 2016.

 UPN-6848 Swan River-5M Big Fork – Location: S-209; Bridge Replacement; FY 2016.

 UPN-8626 SF 139-Dern Spring Reconstruct – Location: US-2; Int Improvements; FY 2017.

 UPN-7884 SF 119-Slope Flatten S-206 – Location: S-206; Slope Flattening; FY 2017.

 MT Flathead 917(2)-Blacktail Road Surface Improvement Phase 2 – Location: Blacktail Road; Surface and 

Drainage Improvements, Slope Stabilization, and Fish Passage; FY 2018.

 MT NPS CLAC 2018(1)-Lake McDonald Lodge BAER Project – FY 2018.

 MT PRA CLAC 10(42)-GTSR Final Phase – FY 2018.

 MT PRA GLAC 10(30)-West Entrance to Avalanche – Phase 10 – FY 2018.

 MT PRA GLAC 10(44)-Lake McDonald Utility Relocation – FY 2018.

 UPN-8134 Old Reserve – NW of Kalispell – Location: S-548; Reconstruction; FY 2020.

 UPN-6850 Flathead River 3M NW Big Fork – Location: MT-82; Bridge Replacement; FY 2020.

 UPN-8083 S FK Flathead – Hungry Horse – Location: US-2; Bridge Replacement; FY 2020.

 UPN-8886 Steel Br Rehab – Corrosion 1 – Location: I-90, MT-200, US-93; Bridge Rehab; FY 2020.

 UPN-8887 6 Groom/Hall CR-1M W Swan Lake – Location: MT-83; Bridge Replacement; FY 2020.

 UPN-8626 SF 139-Dern Spring Reconstruct – Location: US-2; Intersection Improvements; FY 2020.

 MT NPS GLAC 11(3)-Camas Road Slump – FY 2021.

 MT NPS GLAC 1041(2)-Apgar Loop Reconstruction – FY 2021.

 SF 169 Conrad & 2nd Intx - Kalispell; UPN 9372000 – FY 2021.

 UPN-2017 002 NH 5-3(104)130 – Location: Mountainside to MP 133; Reconstruct; FY 2022.

 UPN-2038 004 Kalispell Bypass, Foys Lake Section – Location: Airport and Foys Lake Interchange; 

Reconstruct; FY 2022.

3.11.2Cumulative and Indirect Impacts Assessment

3.11.2.1 Air Quality

Temporary, minimal impacts on air quality would be associated with the Project and other projects and actions

due to construction activities and emissions of criteria pollutants and fugitive dust. Impacts from each project 

would be localized and temporary in nature, and therefore, would result in a negligible, cumulative effect on 

this resource.

3.11.2.2 Noise and Vibration

Temporary, minimal impacts would be expected from increased construction-related noise associated with the 

Project and other projects and actions. Impacts from each project would be temporary in nature and vary 

depending on the type of equipment used (e.g., bulldozers, front end loaders, excavators, dump trucks, scrapers, 

and compactors) the area that the action would occur in, and the distance from the noise source. Therefore, a 

negligible, cumulative effect would be expected.

3.11.2.3 Land Use

Indirect impacts could be expected from the Project, as construction and operation of at least one complete 

street along 4th, 3rd, or 1st Avenue WN would provide increased access to the undeveloped and 

underdeveloped lots north of the railroad corridor and the Mall, and improve the general appeal of the area. 

 

4 Does not include typical maintenance projects (e.g., mill and fill, restriping, pavement resurfacing/preservation).
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This could spur development of new businesses and residences throughout the Core Area. The Kalispell Trail

realignment and northeast trailhead connection would not have indirect impacts on land use.

3.11.2.4 Traffic and Transportation

Temporary, localized, cumulative impacts would be expected during construction activities associated with the 

Project and other projects and actions, due to reduced speed limits, detours, and traffic delays near the 

construction sites. However, potential cumulative impacts would vary depending on the type of construction, 

size of the project, construction phase, and project location.

The Build Alternative, when combined with other projects and actions, would result in improvements on the 

overall transportation system and increase in accessibility in the region. Therefore, beneficial, cumulative 

impacts on traffic flow, safety, and accessibility are anticipated for travelers, including residents, buses, 

pedestrians/bicyclists, and businesses.

Indirect impacts could be expected from induced development in the region associated with the Build 

Alternative and other projects and actions. With the improved transportation system and increased 

accessibility, the general appeal of the region would be improved, and additional residences and businesses 

could be developed. This could result in an overall increase in AADT and need for vehicle parking in the region.

It is anticipated that, as traffic volume in the region rises, there would be continued, ongoing transportation 

improvement projects implemented to reduce congestion and maintain safe travel. Therefore, no significant,

cumulative or indirect impacts are anticipated.

3.11.2.5 Socioeconomics and Environmental Justice

The Project and other projects and actions are anticipated to help foster future economic growth and add 

employment to the local community. It is not anticipated that the future growth from other reasonably 

foreseeable projects, in combination with the Project, would result in negative, cumulative impacts on the Study 

Area. Construction and operation of at least one complete street, the Kalispell Trail realignment, and northeast 

trailhead connection are expected to increase community cohesion and safety for residents within the Study 

Area, as are the reasonably foreseeable projects. The jobs created, increased community cohesion, and 

increased safety resulting from the Project and other projects are anticipated to have a beneficial, cumulative 

effect.

Indirectly, the Project may spur community growth and development due to increasing accessibility to the 

undeveloped and underdeveloped lots north of the railroad corridor. The Project would improve the general 

appeal of the area, which could attract developers to establish new businesses and residences. This would

increase jobs and economic opportunity within the community. This intensification of future development could 

result in ancillary effects, such as additional lighting, grading/soils disturbance, and increased impervious 

surfaces. Anticipated growth impacts resulting from the Project would be consistent with applicable land use 

planning documents and zoning and are anticipated to be minimal.

3.11.2.6 Relocations

The Build Alternative, when combined with other projects and actions, would result in improvements on the 

overall transportation system and increase in accessibility in the region. With the increased accessibility, the 

general appeal of the region would be improved and additional residences and businesses could be developed,

resulting in an increased need in vehicle parking options. It is anticipated that, as residences and businesses are 

developed and traffic volume in the region rises, there would be continued, ongoing transportation 
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improvement projects (i.e., additional parking lot(s) constructed). Therefore, no significant, cumulative or 

indirect impacts are anticipated.

3 . 1 2 I r r e v e r s i b l e a n d I r r e t r i e v a b l e C o m m i t m e n t s o f 

R e s o u r c e s

Irreversible and irretrievable commitments of natural resources, manpower, material, and fiscal resources as 

described in the 2017 EA are similar for this SEA. 

3 . 1 3 P e r m i t s

The permits, jurisdictional entities, and responsible parties as described in the 2017 EA are similar for this SEA.
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CHAPTER 4 COORDINATION AND COMMENTS

4 . 1 P u b l i c O u t r e a c h

The City’s extensive public outreach activities since the 2017 EA/FONSI are described in Section 1.2.2 of this 

SEA.

This SEA is being made available for a 30-day public review and comment period to satisfy the public 

involvement requirements of NEPA. The SEA will be posted on the City and FRA Websites, as well as made 

available in hard copy format at City Hall (201 First Avenue East, Kalispell) and the Imagine Library (247 First 

Avenue East, Kalispell). Notice of the document’s availability will be posted via the City of Kalispell Website, 

Facebook, RSS newsfeed, and Twitter and in the local newspaper, The Daily Inter Lake, and other readily 

available public outlets.

Any substantive comments received during the 30-day public review and comment period, particularly those 

that warrant additional analyses in order to determine the effects of the Build Alternative on the human and 

natural environment, will be addressed in FRA’s final NEPA decision document. Please see Appendix B for public 

outreach documentation associated with this SEA.

 
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CHAPTER 5 LIST OF PREPARERS

Table 6 identifies the names and qualifications of the principal contributors to this SEA. In accordance with Part

1502.6 of the CEQ regulations implementing NEPA, the efforts of an interdisciplinary team comprising 

technicians and experts in various fields were required to accomplish this study.

Table 6, Preparers

AFFILIATION NAME TITLE PROJECT ROLE

Federal Railroad 

Administration

Valarie Kniss Northwest Regional Manager Lead Federal Agency; 

Document Review

Laura Shick Supervisory Environmental 

Protection Specialist 

Lead Federal Agency; 

Document Review

Planning Innovations, Inc. Mark Hardgrove President Lead Federal Agency MTAC;

Document Review

City of Kalispell Katharine King Assistant Director for 

Community and Economic 

Development

Senior Review

Tom Jentz Planning & Building Director Senior Review

KLJ Becky Baker EnvironmentalPlanner Senior Internal Review

Oz Khan Transportation Planner, EIT Traffic Memorandum, 

Primary Author

Jeff Price GIS Analyst Digital Mapping; Exhibit 

Creation

Elizabeth Ricciardi Environmental Lead ImpactAssessment, Primary

Author

Mark Rohweder Municipal Engineer, PE Project Manager
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CHAPTER 6 REFERENCES

CEQ. 1981. Forty Most Asked Questions Concerning CEQ’s National Environmental Policy Act Regulations. 23 March 1981, 

as amended.

City Service Valcon. 2019. Annual Groundwater Monitoring Report for Valcon Distributing. Facility ID 15-01680, DEQ 

Release ID 3612. Prepared by Hydrometrics, Inc.

Flathead County. 2017. Flathead County Weed Control District Revegetation Policy. Available online: 

https://flathead.mt.gov/weeds/FlatheadCountyDeclaredNoxiousWeeds.php

Flathead County. 2019a. Flathead County Geographic Information Systems Interactive Map Site. County Zoning Map. 

Retrieved on 5 April and 29 August 2019. http://maps.flathead.mt.gov/ims/Login.aspx?ReturnUrl=/ims/Map.aspx 

Flathead County. 2019b. Flathead County Zoning Regulations. Adopted Resolution No. 955A, Permanent File No. 

9327013500. Adopted 27 September 1993; Revised 19 March 2019. Flathead County Planning & Zoning Office.

FTA. 2006. Transit Noise and Vibration Impact Assessment FTA-VA-90-1003-06.

KPWD. 92019. Standards for Design and Construction. 2 April 2019. Available online:

https://www.kalispell.com/DocumentCenter/View/466/Standards-for-Design-and-Construction-PDF

MDT. 2015. Montana Department of Transportation Work Zone Safety and Mobility Goals and Objectives, Guidelines, 

Procedures, and Processes. Revised May 2015. Available online: 

http://www.mdt.mt.gov/visionzero/people/workzone-mobility.shtml

MDT. 2016. State of Montana Department of Transportation 2016-2020 Statewide Transportation Improvement Program. 

May 2016. Available online: https://www.mdt.mt.gov/publications/docs/plans/stip/2016stip_final.pdf

MDT. 2018. State of Montana Department of Transportation 2018-2022 Statewide Transportation Improvement Program. 

June 2018. Available online: https://www.mdt.mt.gov/publications/docs/plans/stip/2018stip_final.pdf 

MTDEQ. Undated. EPA Approved Regulations in the Montana SIP. Retrieved 4 April 2019. Available online: 

https://www.epa.gov/sips-mt/epa-approved-regulations-montana-sip 

MTDEQ. 2018a. Air Quality Monitoring Network Plan. May 2018. 

MTDEQ. 2018b. UST database. Last updated on 12 December 2018. Available online: 

http://deq.mt.gov/Land/ust/ustdownloads

MTDEQ. 2019. LUST Site List. Last updated on 2 May 2019. Available online: http://deq.mt.gov/Land/lust/lustsites

Montana State Parks. 2008. Montana Fish, Wildlife, and Parks LWCF Sites by County. 14 May 2008. Available online: 

stateparks.mt.gov/recreation/lwcf.html

NRCS. 2006. Land Resource Regions and Major Land Resource Areas of the United States, the Caribbean and Pacific Basin. 

United States Department of Agricultural Handbook 296. Available online: 

http://www.nrcs.usda.gov/Internet/FSE_DOCUMENTS/nrcs142p2_050898.pdf

US Census Bureau. 2010. 2010 Census. American Fact Finder. Kalispell and Montana data. Available online: 

http://factfinder.census.gov/faces/nav/jsf/pages/index.xhtml#

US Census Bureau. 2017. 2013-2017 American Community Survey: City of Kalispell and State of Montana data. Available 

online: https://factfinder.census.gov/faces/nav/jsf/pages/community_facts.xhtml

USDA. 2019. National Agricultural Statistics Service Cropland Data Layer. Published crop-specific data layer [Online]. 

Verified USDA-NASS, Washington, DC. Accessed on 5 April 2019. https://nassgeodata.gmu.edu/CropScape/
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USEPA. 2019. Current Nonattainment Counties for all Criteria Pollutants. Data current as of 31 March 2019. Available 

online: https://www3.epa.gov/airquality/greenbook/ancl.html

USFWS. Undated. Species Profile for North American wolverine (Gulo gulo luscus). Available online: 

https://ecos.fws.gov/ecp0/profile/speciesProfile?sId=5123 

USFWS. 2007. National Bald Eagle Management Guidelines. May 2007. Available online:

https://www.fws.gov/southdakotafieldoffice/NationalBaldEagleManagementGuidelines.pdf

USFWS. 2018. Endangered, Threatened, Proposed, and Candidate Species List: Flathead County, Montana. 23 October 

2018. Available online: https://www.fws.gov/montanafieldoffice/Endangered_Species/Listed_Species/countylist.pdf

USFWS. 2019. Information for Planning and Consultation (IPaC), Powered by ECOS - the Environmental Conservation 

Online System. Core Area Inquiry conducted 18 February 2019. Available online: 

https://ecos.fws.gov/ipac/location/index

* “Maps throughout this document were created using ArcGIS® software by Esri. ArcGIS® and ArcMapTM are the intellectual property of 

Esri and are used herein under license. Copyright © Esri. All rights reserved. For more information about Esri® software, please 

visit www.esri.com.”
Appendix A

Glossary of Terminology and Definitions
Appendix A  Glossary of Terminology and Definitions 

Attainment – indicates that the air quality within an area meets the National Ambient Air Quality 

Standards (NAAQS). 

Class I Areas – The Clean Air Act affords additional air quality protection near Class I areas. Class I areas 

include national parks greater than 6,000 acres in size, national monuments, national seashores, 

and federally designated wilderness areas larger than 5,000 acres designated prior to 1977.

Clean Air Act – requires the US Environmental Protection Agency (USEPA) to establish air quality 

standards for pollutants considered harmful to public health and the environment by setting 

limits on emission levels of various types of air pollutants. 

Cumulative Impact – The Council on Environmental Quality (CEQ) Regulation for Implementing the 

Procedural Provisions of the National Environmental Policy Act (NEPA) defines cumulative 

impacts as “the impact on the environment which results from the incremental impact of the 

action when added to other past, present, and reasonable foreseeable future actions regardless 

of what agency (federal or non‐federal) or person undertakes such other actions (40 Code of 

Federal Regulations [CFR] 1508.7). 

Endangered Species Act – In accordance with Section 7 of the Endangered Species Act (ESA) of 1973, 50 

CFR Part 402, as amended, each federal agency is required to ensure the following two criteria: 

(1) any action funded or carried out by such agency must not be likely to jeopardize the 

continued existence of any federally listed endangered or threatened species or species 

proposed to be listed and (2) no such action can result in the destruction or adverse 

modification of habitat of such species that is determined to be critical by the Secretary.   

Endangered Species – a species is in danger of extinction throughout all or a significant portion 

of its range.  

Threatened Species – a species that is likely to become endangered in the foreseeable future.  

Candidate Species – a plant or animal for which the US Fish and Wildlife Service (USFWS) has 

sufficient information on its biological status and threats to propose it as endangered or 

threatened under the ESA, but for which development of a proposed listing regulation is 

precluded by other higher priority listing activities. While candidate species are not legally 

protected under the ESA, it is within the spirit of the ESA to consider these species as having 

significant value and worth protecting. 

Proposed Species – those candidate species that were found to warrant listing as either 

threatened or endangered after completion of a status review and consideration of other 

protective conservation measures.

Environmental Assessment (EA) – an informational document intended for use by decision‐makers and 

the public.

Environmental Justice Population – should be identified where either: (1) the minority population of the 

affected area exceeds 50 percent or (2) the minority population percentage of the affected area 

is meaningfully greater than the minority population percentage in the general population or 
other appropriate unit of geographic analysis. For purposes of this Supplemental EA, minority 

population percentages that are ‘meaningfully greater’ are at least 10 percentage points higher 

than for the entire State of Montana. An environmental justice population also exists if there is 

more than one minority group present and the minority percentage, as calculated by 

aggregating all minority persons, meets one of the previously stated thresholds. 

EO 12898, Federal Actions to Address Environmental Justice in Minority Populations and Low‐Income 

Populations requires that federal agencies’ actions substantially affecting human health or the 

environment do not exclude persons, deny persons’ benefits, or subject persons to 

discrimination because of their income, race, color, or national origin.

Indirect Impact – CEQ defines indirect effects as those “which are caused by the action and are later in 

time or farther removed in distance, but are still reasonably foreseeable.” Indirect effects may 

include growth‐inducing effects and other effects related to induced changes in the pattern of 

land use, population density, or growth rate, and related effects on air and water and other 

natural systems, including ecosystems.  

Low‐income Individual – a person whose median income is at or below the Department of Health and 

Human Services poverty guidelines. Low‐income population means any readily identifiable 

group of low‐income individuals who live in geographic proximity and, if circumstances warrant, 

geographically dispersed/transient persons who would be similarly affected by a project. CEQ 

guidance does not provide specific criteria for determining low‐income populations as it does 

for minority populations. Therefore, for purposes of this Supplemental EA, the criteria for 

minority populations, which are defined in this appendix, will be used as the criteria for low‐

income populations. Low‐income percentages that are ‘meaningfully greater’ are at least 10 

percentage points higher than the entire State of Montana. 

Maintenance (in reference to air quality) – indicates that an area was previously designated 

nonattainment, but is now in attainment. 

Minority Population – as defined by CEQ guidance under NEPA (40 CFR § 1500–1508) includes 

individuals in the following population groups: American Indian and Alaska Native, Asian, Black 

or African American, Hispanic or Latino (of any race), and Native Hawaiian and Other Pacific 

Islander. 

Noise – is unwanted sound that can be intermittent or continuous, steady or impulsive, and stationary 

or transient. Noise levels heard by humans and animals are dependent on several variables, 

including distance and ground cover between the source and receiver and atmospheric 

conditions. Noise is a subjective term, because sound levels can be perceived differently by 

different people. Perception of noise is affected by intensity, frequency, pitch, and duration.  

Nonattainment – indicates that one or more criteria pollutant ambient concentrations are greater than 

NAAQS. 

Resource Conservation and Recovery Act (RCRA) and Comprehensive Environmental Response, 

Compensation, and Liability Act (CERCLA) – regulate hazardous materials and wastes and 

environmentally contaminated sites. Past and present activities on RCRA and CERCLA facilities 

typically result in the release of hazardous waste and constituents into the soil, groundwater, 
surface water, sediments, and air, requiring initial investigation and cleanup or remediation of 

these hazardous releases. 

Section 6(f) of the Land and Water Conservation Act – requires that the conversion of lands or facilities 

acquired with Land and Water Conservation Funds (LWCF) be coordinated with the Department 

of Interior. When such a conversion occurs, replacement in‐kind is typically required. 

Sound – is vibrational disturbance capable of being detected by the ear. Sound can be intermittent or 

continuous, steady or impulsive, and can involve any number of sources and frequencies.

Human response to sound varies according to the source type, characteristics of the sound 

source, distance between source and receptor, receptor sensitivity, and time of day. 

Unclassifiable (in reference to air quality) – indicates that there is not enough information to 

appropriately classify an area, so the area is considered as being in attainment. 

Uniform Relocation Assistance and Real Property Acquisition Policies Act of 1970 (Uniform Act) and 

amendments – provide important protections and assistance for people affected by federally 

funded projects, which though designed to benefit the public as a whole, may result in 

acquisition of private property and displacement of people from their homes, businesses, or 

farms.
Appendix B

Summary of Public Outreach
GLACIER RAIL PARK/ KALISPELL CORE AREA DEVELOPMENT AND TRAIL PROJECT – PHASE II

Public Comments Summary

The majority of public comments regarding the complete street options were gathered during the City’s 

week-long Deep Dive event. The City sought public input on the following three options: 8

th Avenue WN, 

6

th Avenue WN, and Woodland Avenue. The 6th Avenue WN option received little public support, with 

the event participants reasoning that it was too close to 5th Avenue WN to be of significant value for

improving vehicular flow or improving access to businesses based on current or expected development in 

the Core Area. The 8th Avenue WN and Woodland Avenue options both received substantial support,

with 8th Avenue WN leading in the participants’ perceived value to improve economic activity in the Core

Area. Woodland Avenue was noted as having greater potential value to non-motorized connectivity, and 

access to destinations including the Conrad Mansion Museum, Woodland Park, and the Kalispell Trail 

itself, but was also thought to result in a greater negative impact to existing neighborhood private 

property such as marked increases in vehicular traffic such that it might become a de facto bypass to the 

detriment of the quiet, historic neighborhood and safety of residents. Both complete street options

scored highly with regard to overall north-south connectivity and the value to the transportation network 

as a whole.

Although Woodland Avenue ranked very high community-wide as a preferred location for a complete 

street connection, City staff, based on experience from previous public involvement activities, anticipated

that the same sentiment may not be shared by property owners along Woodland Avenue. Therefore, the 

City sent out approximately 120 letters to all property owners fronting Woodland Avenue from Center 

Street to Willow Glen and advertised a 30-day comment period and an open house on July 10, 2018. 30 

people attended the open house and a total of 60 public comments were received. 58 of the 60

comments expressed opposition to Woodland Avenue as a complete street option. The City provided the

results of this public process to the Trail Crew (the community stakeholder volunteer group acting as a 

sounding board for the Project), who recommended to the City Council that Woodland Avenue should be 

removed as an option based on the opposition from potentially affected property owners. 

Public comments to date on the complete street options proposed as part of Phase II of the Project (i.e., 

the Kalispell Trail) have been almost entirely in response to the City’s direct community engagement

efforts. The overwhelming majority of public comments have been positive and focused on trail design,

including crossings and features ranging from landscaping and lighting to amenities that may be built 

over time through community contributions, such as a splash pad proposed by Kalispell Rotary.




Appendix C

Memorandum for the Kalispell Trail and 

Complete Streets Traffic, May 2019
1 

KLJ

2969 Airport Road Suite 1B

PO Box 1567

Helena, MT 59624-1567

406.449.7764

http://www.kljeng.com

Memorandum Date: 5/23/2019

To: City of Kalispell

From: Steve Grabill, PE, PTOE; Oz Khan, EIT

RE: Kalispell Trail and Complete Streets Traffic

This document updates the 2015 traffic study that examined potential street connection impacts related 

to each of the seven complete street options that were considered along the soon to be abandoned 

railroad tracks and that would cross the Kalispell Trail in Kalispell, MT (i.e., 8th, 6th, 4th, 3rd, 2nd, 1st 

Avenue WN and Whitefish Stage Road [7th Avenue EN]). The 2015 traffic study analyzed construction of 

at least one north-south complete street. Based on information known at the time and public input 

received for the Project, only three of the options (i.e., 8th Avenue WN, 6th Avenue WN, and Whitefish 

Stage Road [7th Avenue EN]) were evaluated in detail. Four of the options (i.e., 4th, 3rd, 2nd, and 1st 

Avenue WN) were not analyzed in detail, due to the comparatively stronger positive public input received 

for the 8th Avenue WN, 6th Avenue WN, and Whitefish Stage Road (7th Avenue EN) options at the time 

of the original analysis. Subsequently, the 8th Avenue WN, 6th Avenue WN, and Whitefish Stage Road 

(7th Avenue EN) options were included in the original analysis for the Project. 

However, due to responses received during public outreach after issuance of the Project’s Finding of No 

Significant Impact (FONSI) in 2017, the 4th, 3rd, and 1st Avenue WN options, which were not analyzed in 

detail, are being considered in this analysis as potential Build Alternatives. Constructing at least one of 

these three complete street options would increase the number of north-south connections in the Core 

Area; increase accessibility and connectivity to the development in the US Highway 2/US Highway 93 area, 

as well as the underdeveloped and undeveloped lots north of the railroad corridor; improve circulation in 

the Core Area, specifically in the vicinity of US Highway 2, 5th Avenue WN, West Center Street, and US 

Highway 93; and provide opportunity for development of additional businesses and residences along 4th, 

3rd, 2nd, and 1st Avenue WN. This memorandum will focus on these three complete street options: 

• Alternative 1: 4th Avenue WN 

• Alternative 2: 3rd Avenue WN 

• Alternative 3: 1st Avenue WN 

This memorandum analyzes the three eliminated complete street options and updates the previous 

findings based on the most recent traffic data available within the study area. 

The most recent traffic data, sourced from the Montana Department of Transportation (MDT) Interactive 

Traffic Map were collected in 2017. Figure 1 below presents the key corridors and Average Annual Daily 

Traffic (AADT) in the area.
2 

Figure 1. Study Location

Traffic volumes have increased since 2015. Access to the largest retail activity in the immediate area, the 

Kalispell Center Mall (Mall), is currently provided by six driveways: four on West Center Street, one on US 

Highway 93/Main Street, and one on 5th Avenue WN. Except for the driveway at the intersection of West 

Center Street and 1st Avenue W, all other driveways are currently unsignalized. The driveways at the West 

Center Street/2nd Avenue W and West Center Street/3rd Avenue W intersections are restricted to 

entering/exiting right turns only. Areas identified as undeveloped and underdeveloped immediately north 

of the railroad tracks are only accessible from the north. 

The additional access on the north side of the Mall is 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. Parking relocation recommendations are not included in this analysis; however, if any of 

these alternatives are advanced, circulation and parking at the Mall and adjacent businesses north of the 

railroad corridor should be reviewed and modifications should be made if needed or desired. 

Current traffic volumes on all proposed streets is low (estimated 500-1,000 vehicles per day). The volume 

of traffic destined for the Mall that is expected to move from 5th Avenue WN and Main Street to any one 
3 

of the proposed complete streets is estimated to be 1,400 vehicles per day and would not exceed the 

approximate traffic capacity of 4th, 3rd, and 1st Avenue WN (8,000 - 10,000 AADT) nor would it 

significantly change the level of service.

The segment of US Highway 2 between North Meridian Road and Main Street carries 20,000 vehicles per 

day. Constructing any one of the proposed complete streets would likely result in approximately 140 

vehicles per hour on the proposed street during the PM peak hour (this assumes a peak hour of 10% of 

the daily volume). 

Alternative 1: 4th Avenue WN and Alternative 2: 3rd Avenue WN will expect the following similar traffic 

characteristics at the intersection with US Highway 2 during the PM peak:

• Entering (Eastbound right) = 42 vehicles/hour

• Entering (Westbound left) = 42 vehicles/hour

• Exit (Northbound left) = 28 vehicles/hour

• Exit (Northbound right) = 28 vehicles/hour

Alternative 3: 1st Avenue WN will expect the following traffic characteristics at the intersection with US 

Highway 2 during the PM peak:

• Entering (Westbound left) = 59 vehicles/hour

• Entering (Eastbound right) = 25 vehicles/hour

• Exit (Northbound left) = 17 vehicles/hour

• Exit (Northbound right) = 39 vehicles/hour

It should be noted that the intersections of US Highway 2 with 4th and 1st Avenue WN are each in 

proximity to a signalized intersection. Given proximity of the 1st Avenue WN alternative to the US Highway

2 and Main Street intersection, the adequacy of turn lane storage would likely need to be monitored in 

the future. A possible solution to address turn lane storage would be to construct a median to prevent 

westbound to southbound left turns from US Highway 2 onto 1st Avenue WN from occurring. 

Alternative 1: 4th Avenue WN 

Alternative 1 is shown in Figure 2. 

Benefits

• Increases the number of north-south connections and accessibility and connectivity.

• Improves circulation in the local area.

• Provides opportunity for new/additional development.

Potential Impacts

• The Mall parking lot would require reconfiguration to address the offset between 4th 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.

• There would be an increase in traffic between US Highway 2 and the Mall. The Mall traffic 

expected at the intersection with US Highway 2 is minimal and would not likely require turn lanes 

on the approaches of US Highway 2.
4 

• A construction agreement would be required to connect 4th Avenue WN to the Mall parking lot. 

Approximately 3,300 square-feet of Mall property would be temporarily disturbed, and 

approximately 8 parking spaces at the Mall would be lost. 

• Railroad Street West at 4th Avenue WN would need to be closed due to safety reasons.

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

(not shown in Figure 2) might need to be relocated, and parking spaces could be lost. 

• The residents and businesses along 4th Avenue WN, between US Highway 2 and the Mall would 

experience higher traffic levels in front of their properties.
5 

Figure 2. Alternative 1 - Access at 4th Avenue WN
6 

Alternative 2: 3rd Avenue WN 

Alternative 2 is shown in Figure 3. 

Benefits

• Increases the number of north-south connections and accessibility and connectivity.

• Improves circulation in the local area.

Provides opportunity for new/additional development.

Potential Impacts

• There would be an increase in traffic between US Highway 2 and the Mall. The Mall traffic 

expected at the intersection with US Highway 2 is minimal and would not likely require turn lanes 

on the approaches of US Highway 2.

• A construction agreement would be required to connect 3rd Avenue WN to the Mall parking lot. 

Approximately 900 square-feet of Mall property would be temporarily disturbed, and 

approximately 2 to 4 parking spaces at a private business immediately north of the proposed 

Kalispell Trail, on the east side of 3rd Avenue WN would be lost.

• The approach to the business parking lot at the intersection of US Highway 2 and 3rd Avenue WN 

(not shown in Figure 3) might need to be relocated or reconfigured, and parking spaces could be 

lost. 

• The residents and businesses along 3rd Avenue WN, between US Highway 2 and the Mall would 

experience higher traffic levels in front of their properties.

Alternative 3: 1st Avenue WN 

Alternative 3 is shown in Figure 4. 

Benefits

• Increases the number of north-south connections and accessibility and connectivity.

• Improves circulation in the local area.

• Provides opportunity for new/additional development.

Potential Impacts

• The Mall parking lot would require reconfiguration 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.

• There would be an increase in traffic between US Highway 2 and the Mall. The Mall traffic 

expected at the intersection with US Highway 2 is minimal. The existing left-turn storage lane on 

the east approach of the US Highway 2/1st Avenue WN intersection might not be adequate to 

accommodate left-turning traffic during peak hours. 

• A construction agreement would be required to connect 1st Avenue WN to the Mall parking lot. 

Approximately 900 square-feet of Mall property would be temporarily disturbed, and 

approximately 10 parking spaces at the Mall would be lost. 

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

(not shown in Figure 4) might need to be relocated, and parking spaces could be lost. 
7 

Figure 3. Alternative 2 - Access at 3rd Avenue WN
8 

Figure 4. Alternative 3 - Access at 1st Avenue WN
9 

Conclusion

This memorandum analyzes the three additional complete street options and updates the previous traffic 

related findings based on the most recent traffic data available within the study area. All the alternatives 

would increase the number of north-south connections in the Core Area; increase accessibility and 

connectivity to the development in the US Highway 2/US Highway 93 area, as well as the underdeveloped 

and undeveloped lots north of the railroad corridor; improve circulation in the Core Area, specifically in 

the vicinity of US Highway 2, 5th Avenue WN, West Center Street, and US Highway 93; and provide 

opportunity for development of additional businesses and residences along 4th, 3rd, 2nd, and 1st Avenue 

WN. However, these alternatives would also increase traffic activity on the roadways extending north of 

the Mall and at the connecting intersections with US Highway 2. The increased traffic might concern some 

residents and property owners along these roadways. 

The intersections of US Highway 2 and 4th and 1st Avenue WN are each in proximity to a signalized 

intersection. Given proximity of the 1st Avenue WN alternative to the US Highway 2 and Main Street 

intersection, the adequacy of turn lane storage would likely need to be monitored in the future. A possible 

solution to address turn lane storage would be to construct a median to prevent westbound to 

southbound left turns from US Highway 2 onto 1st Avenue WN from occurring.