TIGER Discretionary Grant U.S. Department of Transportation

A P P L I C A T I O N for Replacement of the South Park Bridge, spanning the Duwamish River between the cities of Seattle and Tukwila in King County, Washington. The bridge is located in an urban unincorporated area within the 5th Congressional District. $99,000,000 is being requested by King County, Department of Transportation.

Contact Information: Harold Taniguchi, Director, King County, Department of Transportation; 201 South Jackson Street, Ste. 800, Seattle, WA 98104; [email protected]; (206) 684-1441. DUNS Number / CCR Registration: 12.080.6745 / CCR registration is current. Project Description: Replacement of the 78-year old regionally significant South Park Bridge with a new two-leaf bascule bridge spanning the Duwamish Waterway in the Pacific Northwest’s largest manufacturing and industrial area, south of downtown Seattle and in close proximity to air-freight-heavy King County International Airport (Boeing Field). The South Park Bridge is one of only two river crossings in the industrial area with one additional crossing further south in the City of Tukwila. The bridge A full array of photos is of local, regional and national significance because of its illustrating the location of, importance to intermodal freight transport to and from the fourth damage to and renderings busiest port on the West Coast the link it provides for local residents of how the new South Park within one of the region’s most disadvantaged and ethnically diverse Bridge will look are communities to reach jobs and bus routes. The bridge also provides a available to view. connection to properties within the Boeing Company’s Plant 2 Complex. The South Park Bridge is at the end of its useful life. If construction funds cannot be secured, the bridge will be closed in 2010. The bridge is the lowest ranked, highly traveled bridge in the State of Washington and when inspected to the National Bridge Inspection Standards, has a sufficiency rating of 4 (out of 100.) The bridge cannot be rehabilitated due to major intrinsic flaws in materials and design made during its construction in 1929-31. There is deficient pile support of the bridge foundations allowing the piers to randomly settle and tilt resulting in frequent operational difficulties. Contaminated, self-destructing concrete continually peels away in layers in the brackish water environment, reducing the structural capacity of the piers. Seismically, there is a one in three chance in the next ten years that a moderate earthquake will significantly damage the bridge, rendering the moveable spans inoperable and resulting in the possible collapse of the approaches. Failure to replace the South Park Bridge will significantly increase congestion on the arterials serving major rail, shipping, air-freight and trucking facilities. In addition, it will have a significant affect on traffic within and around local communities including the First Avenue South Park Bridge TIGER Application King County, WA Page 2

Bridge – the next crossing over the Duwamish River to the north. Diversion of the 20,000 vehicles, including 2,800 trucks that cross the South Park Bridge daily would impact other routes close by including State Route-99, State Route-509, Interstate-5 and Interstate-405. The heavy automobile and truck traffic of the existing South Park Bridge, combined with its inadequate and narrow lane and sidewalk widths, make conditions unsafe for non-motorized users and constrict traffic flows. Another safety concern is the substandard vertical curve of the bridge deck. Traffic flow is impacted because large trucks are forced to straddle the narrow travel lanes turning this four lane into a two lane bridge for truck traffic. The new replacement bridge will provide wider travel lanes, separated pedestrian walkways and dedicated bicycle lanes that meet current standards to make pedestrian and non motorized travel more conducive for local residents and employees of local businesses. The immediate South Park Community and surrounding communities will be severely impacted by closure of the South Park Bridge, something that may trigger legal action based on environmental justice laws. The immediate South Park community meets the criteria for environmental justice status because of its low income, high ethnic minority populations located in close proximity to the risk of exposure to environmental hazards. The bridge crosses the Duwamish River which was identified as a Superfund Site in 2001 and is used by other federal agencies to transport hazardous and contaminated soils removed during cleanup operations. The September 2006, South Park Action Agenda reports that, ―89 percent of the students at the local elementary school qualify for free or reduced-fare lunches‖ and according to 2000 census data, 66 percent of the South Park Community identifies themselves as persons of color. The bridge is a vital link to family wage jobs for this disadvantaged community. The adjacent manufacturing/industrial area is an important center for critical export jobs for the region and many of these jobs are held by local residents. Preservation of the region’s existing arterial network is a top priority in the Puget Sound Regional Council’s (the local municipal planning organization) regional transportation planning. Maintaining the critical network of hard working arterial roads and bridges is necessary to recover, sustain and grow the regional and national economy. The failure to replace the bridge and its subsequent, permanent 2010 closure will have direct impacts to the neighborhood and manufacturing/industrial centers that surround it. It will increase traffic congestion on other river crossings and create a physical gap in the regional transportation system. Ultimately, closure of the South Park Bridge will slow the movement of international trade in the nation’s most trade dependent state. Project Parties: King County is located on the Puget Sound and is home to 39 cities and unincorporated towns including Seattle and Bellevue – the largest cities in the State of Washington. King County is nearly twice as large as an average county with a population of 1.9 million. It is the 14th most populous county in the United States. King County’s Department of Transportation (KCDOT) has significant experience and expertise in planning, operating, maintaining and building transportation systems and infrastructure. KCDOT is responsible for five lines of business including: Road Services Division, King County Metro Transit, King County International Airport, Fleet Division and Marine Division. King County Metro Transit has twice been honored as the best-run large public transportation South Park Bridge TIGER Application King County, WA Page 3 system in North America. The King County International Airport—also known as Boeing Field—is one of the busiest primary non-hub airports in the nation averaging more than 300,000 operations (takeoffs and landings) each year and was selected by the National Air Transportation Association as one of the ―100 Most Needed Airports‖ in the United States. King County’s Road Services Division is responsible for 1,795 miles of paved roadway and 270 bridges owned by the county, contract cities and parks organizations. The division operates under Certification Acceptance status with the federal government and since January, 2007 has received over $30,000,000 in federal grant revenues. The division is known for its expertise in bridge design, maintenance, repair and construction. This year the agency was awarded the Director’s Prize by the Washington State Department of Transportation for its replacement of the Tolt Bridge, a $23 million project in rural unincorporated King County. Also this year, King County was awarded the 2009 Prize Bridge Award for the Mt. Si Bridge replacement project from the National Steel Bridge Alliance. Over the past 15 years the department has constructed 53 new bridges at a cost of $135 million, King County is the bridge project seismically retrofitted 115 bridges at a cost of $23 applicant and owner. The South million, and rehabilitated 8 bridges at a cost of $13 Park Bridge spans the Duwamish million. Waterway connecting the Cities of Seattle and Tukwila on either The Boeing Company is the world's leading aerospace company and the largest manufacturer of commercial side. jetliners and military aircraft combined. This internationally recognized airplane manufacturing The U.S. Department of company was founded and originally headquartered less Transportation, Federal Highway than a mile from the South Park Bridge. Boeing owns Administration is the lead agency and operates two facilities on both sides of the Duwamish for the National Environmental River; Plant 2 covers 107 acres north of the bridge and Policy Act (NEPA) and the the 19 acre Tukwila Flight Training Facility south of the Washington Department of bridge. In additional to planes, Boeing designs and Transportation is the State lead manufactures rotorcraft, electronic and defense systems, agency for NEPA. The U.S. Coast missiles, satellites, launch vehicles, and advanced Guard, 13th District is a information and communication systems. As a major Cooperating Agency as part of service provider to NASA, Boeing operates the Space the NEPA process. Shuttle and International Space Station. The company also provides numerous military and commercial airline The Port of Seattle, the Boeing support services. Boeing has customers in more than 90 Corporation and the City of countries around the world and is one of the largest U.S. exporters in terms of sales. The Boeing Company is a Tukwila are financial contributors financial supporter of the South Park Bridge replacement to the project. project and has sent a letter that quantifies the amount of their contribution and indicating their support.

The Port of Seattle plays a key role in bringing international trade, transportation and travel to the Pacific Northwest, and supports industries as diverse as tourism and commercial fishing. The Port is also a key builder of road and rail infrastructure, partnering with other agencies to improve freight traffic from Tacoma to Everett. The Port owns and operates Seattle-Tacoma South Park Bridge TIGER Application King County, WA Page 4

International Airport - the nation’s 18th busiest – handling more than 31 million passengers in 2007. The Port’s passenger cruise terminals at Pier 66 and Terminal 30 handled 190 ship calls and nearly 755,000 passengers during the 2007 season. State-of-the-art cargo handling facilities helped rank Seattle as the nation’s 7th busiest U.S. seaport and the 4th busiest on the West Coast in 2007, serving 21 international steamship lines. The Port also operates four public marinas, and manages a number of real estate assets for financial return and broad economic advantage. The Port of Seattle is a financial contributor to the South Park Bridge replacement project and has sent a letter indicating their support for the project.

The City of Tukwila lies in the heart of the Puget Sound region, located twelve miles south of downtown Seattle, 17 miles north of downtown Tacoma, just east of Seattle-Tacoma International Airport, and at the crossroads of two major interstate highways, Interstate-5 and Interstate-405. Its central location makes Tukwila an ideal site for approximately 2,000 businesses. The City of Tukwila is a financial contributor to the South Park Bridge replacement project and its jurisdiction begins mid span and extends to the north end of the bridge. The City of Tukwila has sent King County a letter indicating their support for the project.

The City of Seattle is a maritime city and major seaport located in the Pacific Northwest region of the United States. Situated in the western part of Washington State on an isthmus between Puget Sound (an arm of the Pacific Ocean) and Lake Washington, about 96 miles south of the Canada – United States border. The encompassing Seattle-Tacoma-Bellevue metropolitan statistical area is the 15th largest in the United States, and the largest in the Pacific Northwest. The major economic, cultural and educational center in the region, Seattle is the county seat of King County. As of April 1, 2009, the city had a municipal population of 602,000 making it the twenty-fifth most populous city in the U.S. and a metropolitan area population of 3,344,813. Council members from the City of Seattle have indicated their support for the project in a letter sent to King County Executive Triplett.

The Environmental Coalition of South Seattle (ECOSS) is a non-profit organization established in 1994 to address challenges over the imbalance of the South Park neighborhood and lower Duwamish River. Through education and outreach, ECOSS helps businesses and individuals – for many of whom English is a second language - prevent pollution, conserve energy, manage hazardous materials and clean up contaminated properties. ECOSS has been involved with the project since its inception and recently sent King County a letter indicating their support.

The South Park Bridge provides a vital bicycling corridor from the north and the south. Bicycling is a key component in improving livability and sustainability in local communities and, as a mode on transportation, has been growing rapidly in the greater Seattle metropolitan area. The nation’s largest bicycle club, the Cascade Bicycle Club, has sent a letter indicating their support for replacement of the bridge. South Park Bridge TIGER Application King County, WA Page 5

Vicinity Map of the South Park Bridge South Park Bridge TIGER Application King County, WA Page 6

Grant Funds and Sources and Uses of Project Funds: King County is requesting $99 million for the replacement of the South Park Bridge. If awarded, these federal funds would be used for the construction phase of the project. King County has received federal awards for this project in the past through Congressional earmarks and from regional award selection by jurisdictions participating in the region’s Municipal Planning Organization – the Puget Sound Regional Council. The following is a table of funding to the project to date.

% Funding Source Project Phase Project Amount Cost Federal Surface Transportation Program Planning & Design (NEPA/EIS) 0.0563 $8,641,000 Surface Transportation Program Right of Way 0.0258 3,966,000 TIGER Discretionary – pending Construction 0.6451 99,000,000 Local Government King County Planning & Design 0.0666 10,222,000 City of Tukwila Planning & Design 0.0195 3,000,000 King County Right of Way 0.0085 1,310,000 Port of Seattle* Right-of-Way 0.0035 534,000 King County Construction 0.1648 25,298,000

Private The Boeing Company* Right-of-Way 0.0098 1,500,000 Total Project Cost 1.0000 $153,471,000 *= in kind contribution

An engineer’s estimate providing a detailed breakdown of the cost of construction is available for review. This estimate reflects construction costs only and was developed after intermediate plans were released. This estimate does not include right of way or construction inspection / engineering costs. This estimate will be updated shortly by an independent peer review / constructability team.

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Selection Criteria Narrative Long Term Outcomes

Economic Competitiveness The South Park Bridge is a key component of the Duwamish Manufacturing/Industrial Center located south of Seattle. The bridge provides access to significant numbers of manufacturing and industrial family wage jobs while also providing access to economically distressed residential areas.

The Duwamish Manufacturing/Industrial Center is located just King County conducted video south of Downtown Seattle and has been in industrial use for interviews with many business over 100 years. The center is bounded by South Jackson Street owners and employees in the on the north, I-5 on the east, Boeing Access Road on the south South Park Community and the (Seattle’s south city limit), and West Marginal Way on the west. Duwamish The center adjoins the south margin of Elliott Bay, includes Manufacturing/Industrial Harbor Island, and extends about five miles southward, along the Duwamish River. The Duwamish Waterway is an important Center. They expressed concern transportation corridor with regional and national significance, that closure of the bridge will and serves as a major origin and destination for trade goods to cause significant economic and from the Seattle area, Alaska and Asia. Domestic and hardship and potentially the international traffic via the waterway amounts to approximately loss of their business. 7.2 million tons each year, valued at approximately $7.5 billion. Employees will at the least At its south end, the center takes in about two thirds of King experience longer commutes County International Airport (Boeing Field.) The Duwamish and less transportation Manufacturing/Industrial Center is one of the largest and most reliability. intensely developed manufacturing/industrial areas in the Pacific Northwest. The Center covers over 4,000 acres and represents Smaller businesses feared for 84 percent of the industrial lands within the City of Seattle. their survival while larger

The regional significance of the Duwamish businesses worried that the Manufacturing/Industrial Center to the City of Seattle and the costs of doing business would Puget Sound Region cannot be overemphasized. Comprised of increase due to longer travel some 4,138 acres of marine and industrial lands (City of Seattle, and increased congestion on 1998), the greater Duwamish Manufacturing/Industrial Center is a unique regional resource and economic engine. The center alternative routes. provides the largest concentration of family wage jobs in the Puget Sound region, generating enormous tax and export revenues. In 2006, there were 4,000 businesses providing more than 70,000 jobs within its boundaries. The center is a vital international trade and transportation crossroads, receiving and distributing goods via roadway, water, rail and air. Its ability to provide multiple modes of transportation represents a unique asset to the nation, the region and an enhancement to the local business environment.

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The South Park Bridge provides access for freight and goods to the King County International Airport (Boeing Field) and Port of Seattle rail and ship facilities along the commercial Duwamish Waterway. It is used by the residents surrounding it and the employees of businesses within the Duwamish Manufacturing/Industrial Center. The bridge spans a navigable waterway that is governed by the U.S. Coast Guard. As such, the bridge must be able to be opened for passing marine traffic. (33 CFR Subpart 2.15-25; 114-115). These same regulations require that the bridge be removed if it is closed as it would be an impediment to commercial marine traffic using the Duwamish Waterway. Four major intermodal connectors are located within a few miles of the bridge crossing and Burlington Northern Santa Fe Railroad owns 35 miles of freight railroad tracks within this manufacturing and industrial center. United Parcel Service, Federal Express and other freight and mail carrier companies are located within the South Park neighborhood as it affords them close proximity to Boeing Field. In April 2007, average daily traffic counts on the bridge were taken for a six-day cycle. The three-day mid-week traffic counts indicated that 14% of the daily traffic was composed of trucks. Based on these data, the South Park Bridge is currently classified as a T-2 facility by the State, and carries approximately ten million tons of freight per year.

The South Park Bridge provides direct access to several industrial and manufacturing businesses in the Duwamish and North Tukwila areas. A recent truck activity survey confirms this by illustrating the business locations using the South Park Bridge on a typical work day. The King County business and truck survey results mapped the locations of more than 400 businesses that used the bridge on one of the two days surveyed. Of these businesses, 115 are located within the vicinity of South Park Bridge and the Duwamish and North Tukwila Manufacturing/Industrial Centers. In addition, King County traffic modeling and survey results show that 50 percent of all bridge users are traveling to destinations in the industrial areas of Duwamish and North Tukwila along East Marginal Way.

Boeing Field is recognized as a major cargo airport and serves as a ―reliever‖ to Sea-Tac International Airport when congested. The Puget Sound Regional Council’s long range transportation plan, Destination 2030, speaks to air cargo as the fastest growing segment of the aviation industry. Cargo coming to Sea-Tac International Airport and Boeing Field is expected to increase from ―613,099 tons in 1998 to 1,048,795 tons in 2010.‖ The two airports are planning for the impacts of more cargo landing on their runways but the roadway infrastructure for hauling freight to and from these facilities are equally as important. The South Park Bridge provides one of only three access points and one of only two access points within the manufacturing industrial center to cross the river. East-west movement through the center is somewhat restricted, due to the Duwamish River on the west and I-5 on the east (2002 Urban Centers Report for the North Tukwila Manufacturing and Industrial Center). Maintaining the South Park Bridge as an access point across the Duwamish River is critically important in planning for forecasted growth in air cargo and its movement on the ground. South Park Bridge TIGER Application King County, WA Page 9

As referenced in the Economic Analysis of the Puget Sound, four of the Central Puget Sound’s major economic clusters are located within the Duwamish Manufacturing/Industrial Center. These clusters include: 1) International Trade, 2) Aviation and Aerospace Manufacturing, 3) Bio-Technology and 4) Information Technology/Software Development. Dynamism is a characteristic of how businesses grow based on their interactions with one another and their dependence on other related businesses within the same industry. The South Park Bridge provides the infrastructure needed to maintain the dynamism of economic development within the Duwamish Manufacturing/Industrial Center. Growth plans and policies developed by King County and the Cities of Seattle and Tukwila speak to the maintenance and preservation of manufacturing and industrial activities within identified centers by discouraging incompatible land use and maintaining transportation infrastructure. The Puget Sound Regional Council’s proposed Vision 2040 plan contains a policy to ―Maintain and improve the existing multimodal freight transportation system in the region to increase reliability and efficiency and to prevent degradation of freight mobility.‖ (MPP-T-18, February 14, 2008; p. 85) Preservation of the critical South Park Bridge physical link crossing the Duwamish River that allows for the continued mobility of freight within the region’s oldest, largest and strongest industrial area must be upheld and funded.

Livability

South Park Neighborhood– history: In 1907 the five-year-old, fledgling Town of South Park voted to annex to the City of Seattle, as the town did not have water or sewer services and water supplies were contaminated. In 1913, the Duwamish River was channelized and re-aligned, creating the waterway that the South Park Bridge now crosses. While beneficial to the region, state and nation as a whole, the realignment of the Duwamish split the South Park Community in half. Commerce and industry flourished here and in 1920, the Boeing Company built an airfield that later became the publicly owned King County International Airport (Boeing Field) and established its headquarters. During World War II the area around the South Park Bridge was a key industrial center. One of the many women portrayed as ―Rosie the Riveter‖ worked at a Boeing warehouse that still stands on the northern side of the South Park Bridge, producing armaments for the war. Industrialization built warehouses, manufacturing plants and ship yards juxtaposed and sometimes in the back yards of people’s homes. In 1956 the City of Seattle rezoned the area as manufacturing and industrial and nine years later yielded to residential protests to retain some residential zoning. This pattern of ―non-conforming‖ land use where homes are next door to steel fabricators or metals recycling plants still exists in the South Park Neighborhood today. 1955 saw the first pollution investigation in the area and in 2001 the Environmental Protection Agency listed the Duwamish River on its national priority list as a Superfund Site. Today, the South Park neighborhood is classified as ―working poor‖ by economic indicators. It contains a vibrant, ethnically diverse, and active residential base struggling to survive amidst manufacturing plants, warehouses, shipping facilities and workhouses within Washington’s largest manufacturing and industrial area. South Park Bridge TIGER Application King County, WA Page 10

South Park Neighborhood - description and demographics: The South Park Neighborhood encompasses the area immediately adjacent to the South Park Bridge. With a population of approximately 3,700 it is the size of a small village. In 2000, the U.S. Bureau of the Census reported that 66 percent of the population here considered themselves to be persons of color. In 1990, only 15 percent of the South Park population identified themselves as Hispanic as compared to 37 percent of the population in 2000 – a 22 percent increase over ten years. In comparison in 2000, only 5 percent of the population within the City of Seattle considers themselves Hispanic. U.S. Department of the Census statistics show that the larger affected area surrounding the South Park Neighborhood contains a higher percentage of the population with disabilities (38 percent) than the Seattle area (27 percent) or the state (30 percent).

South Park Neighborhood – income: A specific measure of economic well-being is a proportional comparison of the For the purposes of this income levels of the community to the region and the rest of criterion, we have defined country. According to 2000 U.S. Census data, the per capita the affected community income in the South Park community for Census Tract 112 was in three tiers: (1) the 42 percent below the Seattle metropolitan area per capita immediate neighborhood income and 27 percent below the U.S. per capita income. of South Park, which is Approximately 13 percent of residents in South Park are below defined as King County the poverty level compared to eight percent in the Seattle Census Tract 112, (2) a region, and twelve percent nationwide. The South Park Neighborhood then, and specifically its residents within larger area encompassing Census Tract 112, meets the definition of an ―Economically adjacent neighborhoods, Distressed Area‖ as defined by the Public Works and which contains South Park Economic Development Act of 1965. Census Track 112 and nine additional Census There are similar demographic trends within a larger study area Tracts and (3) an even including an additional nine census tracts and 33,382 people larger area including (including South Park). Income levels in this larger area are Census Tract 112 and 13 lower relative to the region and the nation with higher Census Tracts. percentages of poverty and of racial/ethnic diversity. All but one of the census tracts in the study area show per capita income below that of the Seattle region, Washington State and the United States. In the largest grouping of 14 Census Tracts and 53,000 people, the average per capita income is 80 percent of or 20 percent below the national average. This area of neighborhoods is located to the south of the South Park Bridge. King County traffic modeling shows that 48 percent of the morning peak traffic comes from or originates from this area.

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Household income, U.S., Washington, Seattle PMSA, and Study Area, 1999

$200,000 or more

$100,000 to $200,000

$75,000 to $99,999

$50,000 to $74,999 $25,000 to $49,999

Household Income in 1999 in Income Household $15,000 to $24,999 Less than $15,000

0% 5% 10% 15% 20% 25% 30% 35% Percent of Households U.S. Washington Seattle PMSA Study Area

Source: U.S. Census 2000 SF3 P52

The South Park neighborhood has lagged behind the region in a number of indicators. Investments in property – through new construction and renovations – lag significantly compared to the rest of the region. During the ten year period 1999-2009, property values in King County grew over 157 percent, while those in the City of Seattle grew by 170 percent. This contrasts sharply with appreciation of only 97 percent in South Park. Even adjacent communities, such as Burien, have appreciated over 140 percent during the same time period. The much lower rate of property appreciation in South Park indicates that investments in this neighborhood lag significantly behind other areas. This substantiates claims that South Park qualifies as disadvantaged community that over time has suffered from environmental injustices by virtue of its mixed land use, high ethnic populations, and exposure to hazardous pollutants. Permanent closure of the South Park Bridge will only compound these problems. User mobility enhancements: The South Park Bridge provides the only arterial crossing of the Duwamish Waterway for three miles between the First Avenue South Bridge to the north, and Tukwila International Boulevard to the south. South Park Bridge is a vital corridor serving local residents and businesses, freight mobility throughout the manufacturing/industrial center, to downtown Seattle, to container ships at the Port of Seattle and to cargo planes at Boeing Field. The South Park Bridge serves the largest concentration of low income households in the State of Washington. Over 40 percent of the trips crossing the bridge originate or end in these communities. Should the bridge be closed, these households and businesses will find it much more difficult to travel around the Duwamish Manufacturing / Industrial Center as will customers of their businesses. South Park Bridge TIGER Application King County, WA Page 12

The bridge carries 20,000 vehicles on an average weekday. 1,300 to 1,500 vehicles use the bridge in the peak direction during both the morning and afternoon peak hours. In the morning peak hours, the predominant traffic flow is in the northbound direction (toward downtown Seattle) heading to major employment businesses in the area; during the evening peak hours, the traffic flow direction reverses to head southbound (away from downtown Seattle.) Current pavement width is 38 feet with six-foot sidewalks on either side; each of the four lanes is substandard in width at 9.5 feet. Currently, the bridge does not have bicycle lanes in either direction as can be seen by viewing this typical cross section. Non-motorized benefits: The new South Park Bridge replacement will significantly enhance mobility for bicycle and pedestrian users by creating five-foot bike lanes where none currently exist, providing a safer place for cyclists to ride and for pedestrians to walk. Additional separation for pedestrians from vehicular traffic will be provided by a curb and rail as illustrated by this rendering of the new bridge once it is constructed. The creation of dedicated lanes will enable bicycle travelers to connect onto other local and regional bicycle routes. This bicycle map illustrates routes accessible by traveling over the South Park Bridge a connection that will be more functional attractive and safe after the new bridge is constructed. The bridge provides access to the Duwamish/Green River Trail corridor running parallel to the Duwamish River. The Seattle Bicycling Map designates the bridge as an ―arterial street commonly used by bicyclists.‖ If the bridge crossing is permanently closed, non-motorized users would have to travel a mile-and-a-half out of their way to another Duwamish crossing. Such a long diversion would have a particularly detrimental effect on pedestrians – most current walkers using the bridge would probably stop making the trip. The Cascade Bicycle Club recognizes the benefits to its member-cyclists and has written a letter supporting South Park’s replacement. Enhancing points of modal connectivity: The South Park Bridge will have a positive impact on two types of modal connectivity: (a) connections between residential and commercial areas, (b) intermodal connections. (a) The South Park Bridge will improve connections between residential and commercial/industrial areas. The bridge offers a direct link between primarily low income, residential areas (located mainly to the west of the Duwamish Waterway) and the commercial/industrial employment areas immediately to the east of the waterway. The bridge also provides a critical connection between residential and employment centers of downtown Seattle and the larger manufacturing/industrial area located beyond the immediate vicinity on either side of the waterway. Recent traffic surveys and modeling conducted by King County demonstrate increased travel times if the South Park Bridge were to be permanently closed. From this data, a map has been created to illustrate traffic patterns of those traveling from low income neighborhoods that surround the bridge. These are the same disadvantaged neighborhoods included in the larger affected area of 14 Census tracts and 53,000 people. South Park Bridge TIGER Application King County, WA Page 13

Means of transportation to work, U.S., Washington, Seattle PMSA, and Study Area, 2000

Worked at home

Other means

Bus or trolley

Carpooled Means of Transportation to Work to Transportation of Means

Drove alone or motorcycle

0% 10% 20% 30% 40% 50% 60% 70% 80% Percent of Workers 16+ U.S. Washington Seattle PMSA Study Area

Source: U.S. Census 2000 SF3 P30 Note: “Other means” includes streetcar, trolley, subway, elevated rail, railroad, ferry boat, taxicab, bicycle, or walking, and other means not defined.

Four King County Metro transit routes serve the South Park Community offering public bus service for an average 1,650 riders per weekday. Routes include: Route 60 (South Lake Union to White Center), Route 131 / 134 (Downtown Seattle to Des Moines) and Route 132 (Magnolia to Highline Community College via Burien).

The importance of the South Park Bridge to these core routes can be seen in the number of average weekday rider counts as they pass through the South Park Neighborhood. Transit ridership data shows that the most heavily used transit corridor within the South Park Community is the South Cloverdale and 14th Avenue South. Transit boarding and de-boarding data shows the most heavily used bus stops are located just south of the South Park Bridge.

In King County, senior citizens and the disabled are served by Metro Transit Access (paratransit) bus service. South Park Neighborhood residents use more Access transit services than other areas within the system. On average 225 riders taking 3,925 trips per month (or 17 trips per rider) utilized King County Metro’s Access buses. When compared to riders within the system at large, South Park area riders take close to 30 percent more trips, per month, than an average Access rider elsewhere in King County. This demonstrates that the South Park Neighborhood is heavily dependent on Metro Transit services, such as fixed route bus and paratransit. These services rely on the South Park Bridge. South Park Bridge TIGER Application King County, WA Page 14

If the South Park Bridge were to be permanently closed Metro and Access transit routes would be re-routed either onto the First Avenue South or Tukwila International Boulevard Bridges – both already more congested than the South Park Bridge. Re-routed bus routes will decrease transit speed and reliability having a significant impact to the low income communities of South Park, Georgetown, White Center and Boulevard Park. Failure to have adequate, reliable and frequent public transportation could mean the loss of employment and access to health and human services to these residents. King County traffic modeling suggests that a permanent closure of South Park Bridge would result in an increase of between two to ten minutes in travel time for each trip for King County conducted a residents. video interview with the Director of Consejo Counseling Interviews with South Park residents attest to the need and and Referral Service – a youth usage of public transit for community members to access jobs and services. At Consejo Counseling and Referral gang prevention and Service located on 16th Avenue South Street, within a block substance addiction and of the bridge, the program director described how many of mental health counseling the center’s Hispanic teen and youth clients use public transit service center. Consejo is to reach their services since they are too young to drive. located directly south of the bridge. The Providence/Mount Saint Vincent organization operates a food bank here that serves over three hundred families each The Providence / Mount Saint week. The director of the food bank is concerned that Vincent food bank serves without the bridge, her clients would not have access to the non-profit, governmental and other services they need on the hundreds of families each other side of the river. Food bank clients are worried that week from the South Park they won’t be able to get where they needed to go efficiently Community. King County and spoke to how often they use the South Park Bridge. conducted video interviews with the director and with Community Benefits: The design of the new South Park food bank clients. Bridge replacement includes roadway improvements on the 14th/16th Avenue South corridor. These improvements include reconfiguring the intersection of 14th Avenue South, Dallas Avenue South and South Sullivan Street. Currently, all roads meet in a single intersection. The current design creates traffic improvements by reconfiguring the intersection. South Sullivan Street will be reconfigured to intersect Dallas Avenue South which in turn intersects with 14th Avenue South. This would improve safety and provide better traffic flow. In addition, landscaping features and parking will be created. All of these improvements will improve the appearance, functionality and traffic and pedestrian safety of the area immediately surrounding the bridge.

Community participation and planning: For over decade King County has actively engaged residents, businesses and non-profit agencies in discussions regarding the condition of and replacement options for the South Park Bridge. Most recently, several public meetings were held to discuss submittal of this application and the recent award of federal funds for the purchase of the right-of-way needed for the project.

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In 2002, the South Park Citizens Advisory Group was created. A total of 17 individuals were chosen by King County from a group of applicants to participate in the advisory group. Selected individuals represent a wide range of community stakeholder interests and public concerns. The group is comprised of South Park residents, property owners, business owners, and representatives of neighborhood and business organizations active in the area. Many discussion topics have been covered at advisory group meetings. County representatives have met with and consulted the advisory group and the larger community during the formulation of the initial nine preliminary alternatives, the five alternatives evaluated in the Draft Environmental Impact Statement, and the selection and development of the preferred alternative. In addition, advisory group members have been briefed on public comments received at the public workshop meetings, the changes in the project King County Executive Triplett schedule, the analysis of potential environmental impacts has received numerous letters presented in the technical reports prepared to support the of support for the South Park preparation of the Draft and Final Environmental Impact Bridge replacement. Letters Statement, and funding issues pertaining to the bridge have come from South Park replacement. Community members, the The South Park advisory group provides an ongoing link for Duwamish MIC, the Seattle the exchange of information between the residents, Chamber of Commerce, the King businesses and non-profits in the larger community and County International Airport, King County. The group has conducted 17 formal meetings Council Members from the City and its input from and communication with the larger of Seattle, the Cities of Tukwila community continues currently. and Burien, and the Building/Construction Trade The advisory group was instrumental in helping King Council. All of these support County develop potential alternatives for consideration and the later selection of a moveable span bascule bridge letters are available to view on replacement rather than a fixed span high-rise bridge. The the South Park Web TIGER bascule bridge design was selected to preserve the application Web site. neighborhood business district, enable continued unrestricted passage of large boats manufactured on the Duwamish Waterway up river of the bridge and to comply with Coast Guard regulations regarding navigable waterways. Had a fixed span high-rise bridge been selected, most of area to the south of the bridge, currently the location of the South Park local business community would have been bought for right-of-way and demolished to locate the bridge piers.

In addition to providing valuable and insightful input regarding the potential bridge alternatives, the community urged the South Park replacement bridge retain the aesthetic features of the original South Park Bridge as built in 1929. Renderings of the new bridge design illustrate how the new bridge will retain the look and feel of a local landmark.

Sustainability Traffic and greenhouse gas emissions: The new South Park Bridge replacement will improve multi-modal transportation and retain roadway network functions for local and regional traffic. South Park Bridge TIGER Application King County, WA Page 16

The multi-modal choices and preserved road linkage will reduce traffic and emissions through reduced travel times, sustain and encourage motorists to shift from single vehicle occupancy vehicles to non-motorized and transit travel, and avoid of exacerbating congestion/gridlock on adjacent arterials and the other downstream bridge serving the manufacturing/industrial and part areas. The parallel bridges offering alternative crossings over the Duwamish River currently experience much higher levels of congestion than the South Park Bridge. Both First Avenue South and Tukwila International Boulevard are at Level of Service D during the morning and afternoon peak hour where they intersect with East Marginal Way. The 20,000 trips a day currently carried by the South Park Bridge relieve pressure on these other vital traffic arteries. The South Park Bridge provides one of the few bicycle crossings of the Duwamish Waterway from downtown Seattle to the south. The other crossings are highly congested and involve travelling on very busy, high speed highway-like arterials. The South Park Bridge is a vital bicycling corridor because it provides a safe north to south route that will be safer and more appealing to travel on with the replacement bridge. Permanent closure of the South Park Bridge will have a severe impact on traffic as trips move to other corridors that are already experiencing severe congestion. The King County travel demand model indicates that over 600 trips a day will shift over to the First Avenue South Bridge during the morning peak hour, and over 270 trips a day will be shifted over to the Tukwila International Boulevard Bridge. During the afternoon peak hour, the model indicates that as many as 700 trips a day would shift over to the First Avenue South Bridge and another 400 trips would shift to Tukwila International Boulevard. This would cause intersections at the First Avenue South Bridge to bog down to level of service F during morning and evening commutes, with average intersection delays doubling. These findings are corroborated by an origin/destination survey of South Park Bridge users conducted during the summer of 2009. Forecasts for the year 2027 indicate significant traffic growth in the area with volumes increasing by 10 to 50 percent at various locations. Northbound morning, peak hour trips on the South Park Bridge are forecast to increase by 30 percent, while southbound, peak trips will increase by 27 percent in the afternoon. Congestion impacts to alternative routes as a result of a permanently closed South Park Bridge would force the 2,800 trucks (many of which have diesel engines) that cross the bridge each day to choose alternative routes where they will experience further delays. Such delays will impact the costs of doing business and will increase the level of greenhouse gas emissions into the atmosphere. Results from the Puget Sound Regional Council’s regional travel-demand model were run with and without the South Park Bridge crossing in place for 2006 and 2025 on a typical weekday. Model results indicate that in 2006, over 14 fewer tons of greenhouse gases would be emitted per typical weekday with the bridge in place. By 2025, that number grows to over 34 tons per day – a growth rate of 4.84 percent per emissions savings year. (This assumes a value per metric ton of co2 of $33, as specified in the Federal Register Notice regarding TIGER Grants and 300 typical weekdays’ worth of emissions in a full year.) South Park Bridge TIGER Application King County, WA Page 17

Using the 4.84 percent growth rate of emissions to interpolate and extrapolate benefits to years other than 2025, greenhouse gas benefits start at $175,818 in 2011 and grow to $692,813 in 2040 (in year-2009 dollars). King County conducted This analysis shows the present value, in 2009, of greenhouse gas an analysis of benefits is $6.9 million when discounted at a 2.7 percent real greenhouse gas discount rate, $6.5 million when discounted at a 3 percent real emissions associated discount rate and $3.5 million when discounted at a 7 percent, real with the construction of discount rate. the bridge. There will be increased greenhouse gas emissions resulting from a permanently closed South Park Bridge crossing, within an increasingly congested local and regional transportation system. However, by constructing the bridge replacement there will be temporary emission increases that will be offset by implementing management practices to reduce construction-related emissions. These include:

Energy efficiency – building a green structure: Many common resource-efficient elements are incorporated into the design plans. These include: energy efficient lighting (such as LEDs for architectural lighting, and individual controls for interior lighting), cut-off luminares for reduced light pollution from street lights, as well as use of low-VOC (volatile organic compounds) emitting paints, adhesives, and sealants. To make the Tender’s Houses heat-efficient, a heat pump, double-paned opening windows, and ample insulation is included in the design. Landscaping will be designed to be water efficient and will include vertical green space, which takes advantage of unconventional space to increase plant cover. Separate metering will allow energy consumption of the various power-demanding elements of the structure to be tracked and additional energy-saving opportunities to be identified.

Energy efficiency – construction and equipment practices: Other energy efficiency efforts will take place during construction of the project to ensure the greenhouse gas emissions associated with the construction of the project are reduced. Equipment will be turned off when not in use and equipment will be maintained in good working order to maximize fuel efficiency. Emissions-control technologies will be implemented for all construction equipment, including the use of ultra low sulfur and biodiesel for air quality purposes.

Environmental mitigation, considerations and innovations: This project implements many engineering and technical innovations unique to transportation infrastructure that will stimulate pride, investment and economic growth within the South Park Community while minimizing environmental impacts primarily associated with contaminated sediments trapped in the Duwamish riverbed. The Duwamish ecosystem has been severely compromised from one hundred years of manufacturing and industrial activities. In 1991, the Environmental Protection Agency established a restoration program and in 2001, the Duwamish River was placed on the agency’s national priority list as a Superfund Site. Despite the toxics trapped in sediments in the river bottom and a history of toxic spills, Endangered Species Act-listed salmonid species still swim through this waterway as they make their way to and from upriver streams for reproduction and South Park Bridge TIGER Application King County, WA Page 18 out-migration of juvenile fish to and from the Pacific Ocean through Elliott Bay and the Puget Sound. The design for the South Park Bridge replacement incorporates many features that directly and indirectly promote environmental sustainability. In addition to meeting State and Federal requirements for site mitigation and improvement, these design elements reduce impacts while creating a green structure. Minimizing impacts – use of caissons: During the intermediate design phase, a major change was made in the footings of the bascule piers, switching from drilled shaft foundations to sand- island sunken caissons. The use of sunken caissons will reduce in-water work, lessen construction-associated vibrations due to less pile driving, and save time and money. These features directly and indirectly minimize impacts on the local environment, and avoid the need for specialized equipment and construction methods associated with drilled shafts. Sunken caissons are not just responsible from a construction standpoint--they also offer better seismic performance. Minimizing impacts – trapping sediments below a sand blanket: To minimize re-suspension of potentially contaminated sediments generated from the installation of the bridge piers and piles, a sand blanket will be placed on the bottom of the channel where piles will be driven or removed. The blanket will serve as a physical barrier between the water column and potentially contaminated sediment. Removal and disposal of contaminated soils: A general environmental benefit of the project during construction we will remove contaminated soils and sediments and leave the area cleaner for the community. All excavated sediments within the upper layers of the riverbed will be considered hazardous and properly disposed of at an approved and licensed hazardous material disposal site. Contaminated soil from upland areas will be removed to meet U.S. Environmental Protection Agency mandated cleanup levels before the placement of fill for the bridge project. Soil removal efforts have been coordinated and negotiated with other federal and local agencies participating in Superfund cleanup efforts along the Duwamish River. Mitigating in-water noise impacts to endangered fish and mammals: Pile driving is generally a necessary component of transportation projects. However, over-water and underwater noise from pile driving activities is hazardous for aquatic organisms, including Endangered Species Act-listed fish species, living and traveling through in the waters surrounding the piles. For those piles that must be driven in a conventional method, the project will test the performance of a temporary noise attenuation pile (TNAP). This emerging technology utilizes a double walled foam-filled steel pile that is placed around driven steel piles. The TNAP is designed to attenuate underwater sound generated from impact driving piles to levels that are no longer lethal to aquatic species. This effort will contribute to national efforts being led by National Marine Fisheries Service (NMFS) and US Fish and Wildlife Service (USFWS) to develop effective best management practices for construction of in-water pile installation. Restoring the Riverbanks- Approximately 250 feet of shoreline will be improved by the removal of rock armoring and steep bank fill, bank shaping and native planting. Restoration will create tidal shoreline habitat; shelter for juvenile salmon and steelhead as they out-migrate to Puget South Park Bridge TIGER Application King County, WA Page 19

Sound and the Pacific Ocean. The project boundaries on the south bank will join a restoration project sponsored by the Environmental Coalition of South Seattle (ECOSS) in cooperation with the Port of Seattle.

Creative approach toward materials: A recurring feature incorporated in the design for the South Park Bridge is a creative approach to materials. Many elements will be prefabricated off- site reducing construction impacts to the site’s environment and reducing material waste. The project will salvage many components from the existing bridge to reuse as artistic and structural elements in the new bridge, including brick and steel. Porous pavement is being considered for pedestrian walkways to reduce the impacts of storm water runoff. Locally sourced materials will be used whenever possible. Recycled materials: The primary waste stream from the demolition of the old South Park Bridge will be non-hazardous materials including concrete, asphalt, and metal. Plans include a comprehensive recycling program to minimize disposal of and to emphasize reuse or recycling of construction demolition debris. Examples include using demolished concrete as on-site fill material, recycling asphalt pavement rubble by remixing it for use as new asphalt or for sub- grade roadway materials, metal debris, including existing steel bridge framework, posts and beams, rebar, and railings will be recycled as scrap metal. New construction will specify a protection pier made with 12,500 feet of plastic lumber made from recycled plastic. Water quality improvements: Stormwater runoff from the new bridge and impervious areas will be collected via a series of catch basins and piped to a water quality wet vault to the north and a rain garden to the south. The new bridge will feature a solid bridge deck on the movable span, rather than the current open steel grating, to facilitate collection of roadway runoff and improve water quality at the site. Although enhanced treatment is not necessarily required under applicable stormwater regulations, King County will incorporate oil control by using a coalescing plate oil/water separator or similar technology placed downstream of the wet vaults. The rain garden design will feature public art and access makes it an enjoyable amenity.

Safety During the life of the bridge, three earthquakes have cumulatively weakened it. Seismically, there is a one in three chance in the next ten years that a moderate earthquake will significantly damage the bridge, rendering the moveable spans inoperable and resulting in the possible collapse of the approaches. However, given the seriously deteriorated condition of the existing bridge structure and the continued tilting of the bridge pier, the existing South Park Bridge will be closed in 2010 unless construction money for the replacement bridge is secured. If the bridge collapses or is removed, it would complicate already ongoing hazardous waste removal efforts associated with Superfund cleanup of the Duwamish River as trucks removing hazardous wastes cross this bridge daily. The South Park Bridge replacement will improve safety conditions along the roadway by incorporating modern transportation engineering for the cross-section, alignment, design speed, and transition segment designs. This will increase vehicular, pedestrian and bicycle safety and reduce the potential for accidents. Replacing the existing outdated bridge with one built to South Park Bridge TIGER Application King County, WA Page 20 modern standards will reduce injury and fatality accidents, improve emergency vehicle access, and promote healthy, attractive alternatives to driving across the bridge through the addition of new bicycle and pedestrian amenities. The existing South Park bridge cross-section has four, nine-and-a-half foot travel lanes, raised curbs on both sides of the pavement, and a six-foot sidewalk on both sides of the roadway. The narrow widths and configuration of these features do not conform to current standards and create a potential safety hazard to all bridge users. Pedestrians walking along the existing sidewalks are in danger from collision with truck and bus mirrors that can easily hit them if they walk along the sidewalk near the curb. Because of its steel deck grating, bicyclists tend to use the narrow sidewalks making combined use of this narrow passage even more dangerous. Sight distances are limited by the vertical curve of the bridge additional causing safety concerns. As drivers approach the bridge, they are unable to see situations well in front of them that may require braking or lane changes to avoid accidents. Evidence of these safety deficiencies are reflected in the accident data for the bridge. Travelers over the bridge experience on average, over seven accidents per year and in 1997 there was one fatality. In summary, South Park Bridge Incident Report accident data from 2001 to 2008 shows that;

Over 18% of all accidents are caused by collisions with other vehicles. Over 40% of all accidents are due to drivers losing control and colliding with the bridge structure, causing damage to the bridge. Over 13% of all accidents have resulted in an injury.

Many bridge accidents are caused by slippery conditions because of rainy weather - a predominant weather condition in the greater Seattle area. A solid concrete deck will provide improved traction and allow stormwater runoff to be captured and treated. The bridge replacement is designed with four standard eleven-foot lanes, five-foot bicycle lanes, and six-foot sidewalks, significantly improving safety and operation of the bridge. The new design features are illustrated in renderings of the new bridge. Permanent closure of the South Park Bridge will increase congestion on the First Avenue South Bridge, and on the Tukwila International Boulevard Bridge, thereby increasing the potential for accidents on those facilities. Another safety concern is the extra time it will take for emergency aid and police vehicles to respond to members of the South Park Neighborhood. Response times for backup units supporting Fire Engine 26 in South Park would increase in the event that more than one fire engine is needed, because responding units would need to use the First Avenue South Bridge. The secondary response unit for South Park, Fire Engine 27, is located in Georgetown, across the Duwamish River, and currently uses the South Park Bridge for access to the larger South Park community. The presence of a higher volume of traffic on the First Avenue South Bridge could further hinder response times. South Park Bridge TIGER Application King County, WA Page 21

The new bridge will include a second set of gates known as traffic barriers. These barriers lower and lock during a bridge opening and are designed to cushion the impact of a vehicle should it crash through the warning gates. Without these barriers, an errant vehicle could crash into the upraised concrete deck of the bascule span, increasing the chance of personal injury.

Evaluation of Expected Project Costs – Benefit – Cost Analysis The economic benefits reported here represent the value, in dollars, of the benefits that would be produced by the replacement of the South Park Bridge as opposed to permanently closing it. The present, discounted value of benefits may be compared directly to the present value of the cost of the project. This cost-benefit analysis shows that at 2009 present value, user delay benefits amount to $337.8 million when discounted at a 2.7 percent real discount rate, $318.2 million when discounted at a three percent real discount rate, and $153.6 million when discounted at a seven percent real discount rate. The costs of time travel delays exceed the project cost by up to $150 million, showing an overall benefit from retaining a river crossing at South Park by construction of the replacement of the bridge. Every one of the primary criteria identified in the call for TIGER King County consulted with grant proposals would benefit from the replacement of the South Park Bridge as compared to permanent closure. Users of the ECONorthwest an bridge will benefit the most from travel time savings. Traffic economics, finance and modeling indicates 40 percent of morning peak hour traffic using planning firm to conduct a the South Park Bridge are from the disadvantaged South Park, cost-benefit analysis for Boulevard Park and White Center Communities. Other users are this project. This analysis dispersed from throughout the Seattle metropolitan area but relied on model runs from include a large number of freight trucks. the Puget Sound Regional Council’s regional travel- Improved travel time reliability and safety is a major benefit to a demand model of a variety of users. Travel time savings is crucial to the industrial typical weekday. The and manufacturing businesses in the area surrounding the bridge model was run with and – especially air freight carriers traveling to Boeing Field. During without the bridge in an interview with a specialized, electrical parts distributor, the owner acknowledged that his location close to the airport, rail place for 2006 and 2025. and freeways gave him a competitive advantage against others in Because all trips the same business due to his ability to deliver parts more quickly. throughout the region are If the South Park Bridge is permanently closed this advantage modeled, the model would largely disappear. captures not only the effects on those who Safety benefits primarily accrue to bridge users, but also would use the bridge, but ultimately affects everyone who pays insurance premiums, and, also on other users of in the case of serious injuries and fatalities, to the families and parallel or alternate friends of the users who are accident victims. These benefits routes. improve the livability of the communities and help retain and improve the economic competitiveness of the Pacific Northwest by maintaining its industrial/manufacturing center transportation infrastructure. South Park Bridge TIGER Application King County, WA Page 22

In terms of meeting the sustainability criteria, the benefits of reduced greenhouse gas emissions accrue throughout the world. As discussed earlier, that will amount to almost $700,000 over thirty years in 2009 dollars. Finally, the new bridge will produce benefits in the form of reduced operating costs to users – primarily through reduced fuel consumption. This adds value to the benefits of creating a sustainable project and meets many federal, state and local goals toward reducing our nation’s dependence on oil.

State of Good Repair A critical mission of the United States, the State of Washington, The Pacific Northwest Region and King County is to responsibly maintain its road and bridge infrastructure for the transportation of goods and services, to serve the public need and for reasons of national security. Several King County Comprehensive Plan policies speak to preservation of the existing transportation system speak to this specifically: T-403 Essential maintenance, preservation, safety and operations costs of the transportation system should be funded prior to other costs for capital improvements so that existing investment is protected and current mobility is not degraded. T-307 Projects will be prioritized to address safety and operations. Projects that address existing capacity needs in urban unincorporated King County inspects and shall also be given priority consideration.

As the Metropolitan Planning Organization for the region, the Puget Sound Regional Council also recognizes this in its long range plan, VISION 2040. The plan has an adopted goal and motion that emphasizes the efficient maintenance and management of the transportation system as it affects the overall performance of the region’s transportation system.

Goal: As a high priority, the region will maintain, preserve, and operate its existing transportation system in a safe and usable state.

MPP-T-1 Maintain and operate transportation systems to provide safe, efficient, and reliable movement of people, and services.

These policies are similar to those at the state and federal level that emphasize making maintenance, preservation, safety, and optimization of existing transportation infrastructure and service a high priority.

King County maintains 270 bridges from our own inventory as well as local jurisdictions. In 2007, $24.8 million was budgeted for bridge preservation and maintenance. King County manages and minimizes life-cycle costs by requiring a documented physical inspection on each bridge at least every two years. Based on these inspections, maintenance and rehabilitation activities are prioritized, funded and scheduled. South Park Bridge TIGER Application King County, WA Page 23

King County uses the ―modified approach‖ under the Government Accounting Standards Board 34 for its inventory of roads and bridges. King County maintains the asset class at a specified level of service (condition). To report on asset condition, the County conducts annual evaluations to determine which bridges are due for replacement or rehabilitation using a ten- point priority scale based on bridge condition. This is outlined in the County’s 2007 Comprehensive Financial Annual Report. A key element of this evaluation is the sufficiency rating – a numerical bridge rating from 0 (bridge closed) to 100 (new bridge) based on structural adequacy, safety, serviceability and functional obsolescence. Sufficiency rating formulas are dictated by the Federal Highway Administration and are built into Washington State’s bridge inspection software which the County uses for inspection. King County’s policy is to maintain bridges in such a manner that no more than twelve bridges or six-and-one-half percent of the total inventory will have a sufficiency rating of 20 or less. The South Park Bridge is one of only six bridges at or below this threshold with a sufficiency rating of four. With a rating of 4 out of 100, the bridge is the lowest rated, high traffic bridge in the State of Washington. The South Park Bridge is at the end of its useful life. The South Park Bridge is deteriorating rapidly, so King County has conducted a comprehensive suite of inspections on a more frequent basis. To keep the bridge open and operating beyond 2010 will pose a significantly increased level of risk to public safety and appears improbable because of the structurally compromised nature and condition of the load bearing elements. Damage to the bridge can be seen in the most recent South Park Bridge Inspection Report. The risk to public safety derived from its poor condition and from its low sufficiency rating, will cause King County to permanently close the bridge in 2010 if funding for its replacement is not secured.

Evaluation of Project Performance King County has developed performance measures to evaluate the performance of projections and impacts made within this TIGER application. Both short and long term measures and milestones have been created to measure the benefits to the communities, to employment and to user safety that will result from the replacement of the South Park Bridge. Short Term Measures: 1. Percentage of major project milestones met. 2. Percentage actual versus planned project expenditures. 3. Percentage reduction in structurally deficient bridges in King County 4. Number of jobs created from the construction of this project and the manufacture of materials used for its construction. South Park Bridge TIGER Application King County, WA Page 24

Long Term Measures: 1. Percentage reduction in traffic collisions occurring on (replaced) South Park Bridge (per vehicle miles traveled, if data is available). 2. Estimated cost benefits to users at five year intervals, using current discount rates. 3. Actual versus projected jobs created as a result of replacement of South Park Bridge. 4. Number of kilowatt hours of energy saved from bridge replacement.

Jobs Creation and Economic Stimulus Construction spending associated with the South Park Bridge project will generate short-term benefits for workers and business owners in King County and elsewhere in the state of Washington. One approach for measuring these impacts is called input-output modeling. The most commonly used input-output modeling software and the one used in this analysis is called IMPLAN (IMpact Analysis for PLANning). IMPLAN has been developed and distributed by the Minnesota IMPLAN Group, Inc., since 1993. There are over 1,500 public and private users of the IMPLAN modeling software and recently the U.S. Department of Agriculture (USDA) recognized the IMPLAN framework as ―one of the most credible regional impact models used for regional economic impact analysis.” Following a review by experts from seven USDA agencies, IMPLAN was selected as the analysis framework for monitoring job creation associated with the American Recovery and Reinvestment Act (ARRA) of 2009. In general, the IMPLAN model works by tracing how and where the expenditures associated with the South Park Bridge project circulate through an economy. In this analysis, economic impact modeling was done for two regions: King County and the State of Washington. The difference between these two estimates represents the impacts that occur elsewhere in the state. IMPLAN indicates that nearly $80 million in output from the construction of the bridge will result in the State of Washington from direct, indirect and induced impacts; the majority of this impact ($56 million) will occur within King County. Wages predominate and nearly 400 jobs are expected from bridge construction. This data was used to allocate the job impacts associated with the project to establishments of different sizes. The following table reports an approximate measure of employment impacts, by size of establishment, based on the job impacts by industry sector and census data for the state of Washington for 2004 (the most current year available). More detail is available about this analysis.

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Job Impacts, by Size of Establishment

Source: ECONorthwest using detailed project cost data and IMPLAN.

Based on these approximate measures, the table above shows that 68 percent of the job impacts in King County may accrue to establishments with less than five employees. These employers are most likely to hire local residents. Small businesses are often said to be the engines of economic development and fostering these businesses can lay the groundwork for further employment expansions within these communities. An average of 128 direct, on-project jobs are expected to be created or sustained for every day this project is in motion. The following table estimates the number of jobs created by quarter for the three years during construction of the new Job Creation During Construction, South Park Bridge. by Quarter Contracting Practices and the Federal Wage Requirement: King County complies with all Year Quarter On-project jobs federal regulations regarding wage rate 2010 Q1 76 Q2 requirements and has prepared a statement 149 Q3 173 certifying compliance with the Federal wage rate Q4 246 requirements as outlined in subchapter IV of 2011 Q1 282 chapter 31 of title 40, United States Code. Q2 258 Q3 124 King County has a long and successful history of Q4 63 utilizing best practices within its contract 2012 Q1 27 specifications that target low-income workers and Q2 51 hiring programs. Q3 57 Q4 33 In 2008, former King County Executive Ron Sims created In the construction of the new South Park Bridge, King County will the ―Equity and Social Justice‖ make every effort, consistent with contracting requirements, to task force and charged the ensure that local residents and low-income individuals will be County to review its service provided with employment opportunities. levels and practices so as not to further the divide between advantaged and disadvantaged communities. This effort complimented longstanding programs and contract practices such as: Apprenticeship programs: King County complies with Revised Code of Washington 39.04.320 setting an apprenticeship goal of 15% for public works projects of $2 million and greater. South Park Bridge TIGER Application King County, WA Page 26

Labor Practices and Compliance with Federal safety and fairness practices: As part of standard contracts, bidders must provide a declaration of equal benefits for workers. King County meets labor and industry standards for all contracts. Contracts require that safety, health, and sanitation laws (23 CFR 635) are followed.

Small Contractors and Suppliers (SCS) Program: King County has developed a Small Contractors and Suppliers Program to create opportunities for King County and its contractors to make use of SCS firms on county contracts and increase the competitiveness of these firms as Prime Contractors and Subcontractors, Consultants, and Suppliers.

Civil Rights and Equal opportunity: King County complies with civil rights and equal opportunity practices in a number of ways. All contractor bidders are required (King County Code Chapter 12.16) to affirm and certify that they do not discriminate and meet employment goals that meet federal requirements. Self-evaluation forms for 504/ADA requirements are included in all contracts. King County includes federally mandated (Form FHWA-1273) nondiscrimination and safety requirements in contracts with federal aid.

Environmental approvals

In 2002, King County began preparing an Environmental Impact Statement (EIS) as it became increasingly clear that the existing South Park Bridge was nearing the end of its remaining service life. Other federal permits required under the National Environmental Policy Act (NEPA) include a Section 4(f) evaluation, a Section 106 Memorandum of Agreement (MOA), and a Biological Assessment (BA) under the Endangered Species Act (ESA) Section 7. Currently, these permits have been or are close to being obtained as illustrated by the simplified project schedule for environmental approvals above.

Additional federal permits for bridge construction include: Section 9 general bridge permit from the United States Coast Guard, Section 10 and Section 404 permits from the United States Army Corps of Engineers (USACE). Major State permits include: Hydraulic Project Approval (HPA) from the Washington Department of Fish and Wildlife (WDFW), a water quality 401 certification and a NPDES permit from Washington Department of Ecology (WADOE). Major local permits include: Clearing and Grading, Shoreline Substantial Development permit and a Flood Hazard Certification from King County Department of Development and Environmental Services. In addition there will be several development permits required form the City of Seattle. This is illustrated by a detailed permit matrix. South Park Bridge TIGER Application King County, WA Page 27

As part of the EIS, thirteen discipline reports were produced; follow-up geotechnical studies conducted, replacement options evaluated, public meetings held, and in 2004, a preferred alternative was selected. The Draft EIS was completed and submitted to the Federal Highway Administration (FHWA) in 2005. The Section 106 process is complete and the biological opinion from United States Fish and Wildlife (USFW) has been issued. King County has received FHWA’s comments on the preliminary, final EIS and that version is now available for review. In recent communication with reviewers at the Washington State Department of Transportation, the FHWA has acknowledged that their review process is substantially complete and what remains for final NEPA signature is legal review, public comment and the issuance of the Record of Decision. This is expected to occur in November, 2009. Documentation is contained here on our website.

Technical Feasibility The bascule design solicited for the new replacement bridge is technically Engineering plans for the feasible. Preliminary design of the preferred alternative began in 2007 South Park Bridge are 65 and was completed in 2008; followed closely by the intermediate design percent complete and a phase, which was concluded in early summer of 2009. A Value complete set is available for Engineering (VE) Study was conducted between the preliminary and review. intermediate design phases resulting in the incorporation of a number of design and cost-cutting improvements into the intermediate and now final This summer, a risk designs. The design team has transitioned into the final phases of design assessment was conducted in August of this year and plans will be 100 percent completed by the end to indentify potential of 2009. weaknesses in the design and construction plan that could lead to potential delays or increased costs. Assessment findings are being incorporated into final bridge designs.

In 2009, the South Park Bridge was selected for a $4 million Surface Transportation Program award toward the purchase of right-of-way necessary to stage construction and to locate the new bridge. Permitting associated with this activity is underway. A test pile driving operation is scheduled for the fall of 2009, to determine (and allow planning for) any negative impacts that heavy construction activities may have on the existing bridge while construction of the new bridge begins alongside it. Final design is expected to be complete by the end of 2009, with the project being advertised for bid shortly thereafter in January 2010. Selection of a construction management firm will take place in late 2009 and construction of the project is scheduled to begin in April, 2010. Construction will continue through the end of 2012, but the project will be considered South Park Bridge TIGER Application King County, WA Page 28

―substantially complete‖ by January 2012 when traffic is switched over to the new bridge. Demolition of the old bridge will begin soon after it is taken out of service and should be complete by 2013.

Legislative Approvals Metropolitan King County Council Ordinance 2006-0563 states that the county is committed to replacing the existing South Park Bridge within a reasonable timeframe, provided that sufficient funding is available through a regional dedicated transportation funding source, along with federal, state and local sources as long as the existing South Park Bridge continues to be owned by King County and the City of Tukwila. This project is shown as fully funded within the 2010-2015 Executive Proposed, Six-Year Capital Improvement Program with the assumption of receiving the full TIGER grant amount requested of $99,000,000.

State and local planning The South Park Bridge serves the larger South Park Communities by offering a crossing of the Duwamish River within the state’s largest manufacturing/industrial center. The need for its replacement is recognized in various local, regional and statewide transportation planning documents including: The South Park Community Urban Village Plan, the City of Seattle’s South Park Action Agenda, the City of Seattle’s South Park Web site and the City of Seattle’s Comprehensive Plan, the Greater Duwamish Manufacturing and Industrial Center Plan, and the Lower Duwamish Waterway Site Community Involvement Plan. Acknowledgement by these planning processes recognize the bridge’s importance to the South Park Various state and local legislators have Neighborhood and other nearby communities, to air expressed their support for this project and cargo freight transport, and to Washington’s including: State Legislators, King County dependence on trade as a major driver of its Council Chair, Dow Constantine, economy. members of the Seattle City Council and The South Park Bridge replacement project is labor unions. included within Destination 2030 – the Metropolitan Transportation Plan for the central Puget Sound region. The bridge is also a project within the transportation element of VISION 2040, the region’s growth management, economic and transportation strategy. The Puget Sound Regional Council is the region’s Municipal Planning Organization and its plans lay the course for anticipated growth and transportation system improvements across a four county area. Destination 2030 provides a comprehensive list of needed projects as identified by cities, counties, the state and other agencies. The regionally significant components of these systems are crucial to the mobility needs of the region, and constitute the Metropolitan Transportation System. South Park Bridge TIGER Application King County, WA Page 29

The Regional Transportation Improvement Program includes current transportation projects within the Central Puget Sound Region include those within King, Kitsap, Pierce, and Snohomish Counties. Projects on this list have received federal grant awards and are selected through the Regional Council's biennial selection process. After public review and comment, the Transportation Improvement Plan is approved by the Regional Council's Transportation Policy and Executive Boards before being submitted for further approvals to the Governor and ultimately the U.S. Department of Transportation. The South Park Bridge replacement project is listed in the Regional Transportation Improvement Program having received federal funds for the development of an Environmental Impact Statement. The recent Surface Transportation Program award of an additional $4 million for right-of-way acquisition allows the county to complete this phase by the end of 2009. The Puget Sound Regional Council has stated that if a TIGER grant were to be awarded for construction of the bridge, its inclusion in the Regional Transportation Improvement Program would only require minimal, procedural review as the project has been a part of the Regional Transportation Improvement Program previously and is recognized in regional transportation plans.

Financial Feasibility King County currently has the means to support construction of the South Park Bridge replacement and is in the process of investigating various financing options. The County has the capacity to issue general obligation bonds and has done so in the past to responsibly fund significant road and bridge projects with debt services funded within the existing dedicated road fund revenues. The County intends to issue general obligation bonds to finance bridge construction. King County has the financial capacity to issue these bonds as indicated by its excellent bond rating. Standard & Poor rates the County as AAA, while Moody’s rating is a similar AA1. The King County Department of Transportation has significant experience managing and implementing federal funding awards. Dedicated staff members are charged with the responsibility of ensuring that all federal requirements regarding administration, management and reporting are met. All five lines of business within the department have active federal grant awards -- over $500 million from the modal offices within the U.S. Department of Transportation alone. This includes awards from the Federal Transit Administration, Federal Highway Administration, and Federal Aviation Administration. Additionally the Department is the recipient of federal funding from the Environmental Protection Agency, Department of Energy, Department of Housing and Urban Development, and the Federal Emergency Management Administration. South Park Bridge TIGER Application King County, WA Page 30

Secondary Criteria Innovation Weight savings from movable span girders vs. traditional trusses: The new bridge will reduce weight where possible on the movable span. Beyond the reduction in energy a lighter bridge would require to open and close, there are other advantages that benefit the structure. For instance, using a combination steel-grid and concrete deck reduces the amount of concrete required on the bridge deck, thereby reducing the weight of the movable span. This reduced weight allows for smaller girders to support the deck, which translates to smaller machinery and reduced electrical demand to open and close the movable spans. The lighter weight movable spans also reduce the seismic loads on the bascule piers. These weight reduction benefits allow for a smaller and more compact foundation that requires less material to build and a smaller footprint improving river hydraulics and disturbing less river bed. Other major weight reducing measures on the movable spans are steel replica Jersey traffic barriers used in lieu of concrete Jersey barriers and the use of lightweight concrete within the grid deck (lightweight concrete typically weighs about 25% less than regular concrete).

Regenerative Braking: The new bridge will use regenerative braking to recapture some of the energy used to operate it. When a drawbridge is raised, energy is converted from electrical to mechanical form. This energy is typically dissipated through the brakes as heat when the drawbridge is lowered. With regenerative braking, some of that mechanical energy is recaptured and converted back to electrical energy as the bridge descends. A similar method of recovering spent energy while braking is used widely in hybrid vehicles to make them more fuel efficient. With regenerative braking King County expects to recapture between five and ten percent of the energy used to open and close the bridge, making drawbridge operations more energy efficient and reducing overall electrical demand on the system.

Incorporating bridge gears and rockers as artistic elements in new bridge design: King County enacted the One Percent for Art Ordinance in 1973 to ensure that the work and thinking of artists is incorporated into county buildings, public places, and infrastructure. Funding for artwork under this program comes from a special budget that can only be used for public art. As part of the county's One Percent for Art program, artist Barbara Grygutis was selected to design and create artwork for the new South Park Bridge. Ms. Due to its historical Grygutis’ has designed her artwork within the bridge to call status, nationally attention to the beauty inherent in the engineering of the 1920s – when early bascule bridges including the South Park Bridge were renowned originally designed and constructed – while celebrating the place architectural and and the new bridge as it exists in today’s world. historical photographer, John Four rockers and guide tracks, originally obscured from view as Stamets has taken they raised the old bridge, will now flank the approaches and photos of the red create powerful visual gateways to the South Park neighborhood. A pedestrian railing will feature curved pickets that open towards brick road. the center of the new bridge, echoing the motion of the Duwamish Waterway underneath. The South Park Bridge TIGER Application King County, WA Page 31 gears and original rail panels will be embedded throughout the span, lending rhythm and narrative to the pedestrian and vehicular experience. All elements will be painted metallic silver, reflective by day; the rockers will be dramatically lit at night.

Recycling and reuse of red bricks – historical element: Just south of the existing South Park Bridge is a section of historical brick road. The red brick road, one of last remaining examples in Seattle, was paved in brick in 1916 and connected Tacoma to Seattle through what is now the South Park neighborhood. The brick segment is approximately 410 feet in length. The remaining brick segment is the last visible vestige of the days of brick roadway engineering in South Park and the surrounding area. The red brick segment of 14th Avenue South will be removed during the upcoming construction of the new South Park Bridge, which will replace the existing bridge crossing the Duwamish Waterway at 14th/16th Avenue South. The new bascule bridge will replace the existing, and new approach spans will be constructed in the location of the 14th Avenue South Red Brick Road. As a means to mitigate the impacts to the Red Brick Road – a significant cultural resource –the brick will be restored and reused in new sidewalks along Dallas Avenue South and 14th Avenue South, at the Southern terminus of the new bridge. A detail illustrating this is shown on sheet 124 of the plan set Volume 1.

Partnership The bridge connects the jurisdictions of Seattle and Tukwila spanning the navigable waters of the Duwamish Waterway. The City of Tukwila has supported the project financially and in all likelihood, the City of Seattle may annex the bridge and remaining unincorporated area. The Boeing Company and the Port of Seattle have agreed to donate the value of easements and property as in-kind donations. These contributions amount to a little over $2 million. Both organizations recognize the value of the bridge as an important element of the transportation system and that without the river crossing at the current location congestion will increase on many other key arterials adding delays and increasing the cost of doing business, making it more difficult for agencies providing public services and damaging the integrity and connectivity of the regions transportation system. The communities at large are King County’s largest partners in this effort as local participation and support for this project has been consistent and strong. South Park Bridge TIGER Application King County, WA Page 32

Program-Specific Criteria Impacts for build and no-build scenarios:

Replace the South Park Bridge Close the South Park Bridge

Maintain regionally utilized transportation Gap in regionally utilized transportation infrastructure in the region’s largest infrastructure in the region’s largest manufacturing/industrial center. manufacturing/industrial center.

Retain a key arterial route into and out of the South Additional travel time for disadvantaged Park Community for residents and for freight transport. South end and South Park Community for residents and for freight transport.

Usefulness as additional route across the Duwamish Additional congestion impacts to other Waterway, diverting and dispersing alternative, surrounding key arterials and bridges crossing congested routes. the Duwamish Waterway.

Projected benefits of $154 – 337 million to the Loss of benefits to the community $154 -337 community, outweighing project costs. million.

Greenhouse gas savings totaling $3.5-$6.9 million Greenhouse gas emissions totaling $3.5-$6.9 (depending on discount rate) and 36 tons of greenhouse million (depending on discount rate) and 36 gases annually. tons of greenhouse gas emissions annually.

Retains a key crossing for transport of hazardous waste Creates a longer detour route around the and contaminated sediments associated with Superfund Duwamish for the transportation of hazardous cleanup activities by other federal agencies. wastes and contaminated sediments associated with Superfund cleanup activities by other federal agencies.

Creates safer non-motorized routes for pedestrians and Removes non-motorized accessibility to bicyclists. transit and bicycle routes.

23 CFR 707 – 2,800 total daily truck 17,200 ADT non-truck traffic, 4.0 (out of 100) bridge sufficiency rating. Washington State mandates that four trucks be used to check the load capacity of a bridge. A live load testing and load rating exercise was performed on the bridge in March, 2006. Test results and analysis revealed that one of the four trucks yielded a rating of 1.01, barely above the rating factor threshold of 1.00. The bridge is inspected frequently and will be posted to limit the weight of trucks using it when a change in condition warrants such action. This is expected to occur within the near future.