INTERCHANGE JUSTIFICATION REPORT

Draft SR 509 East D Street Interchange Project December 2012 DRAFT Interchange Justification Report

SR 509 East D Street Interchange Project Tacoma, Washington

Submitted to

City of Tacoma Tacoma, Washington

20 December 2012

Submitted by

BergerABAM, Inc. 33301 Ninth Avenue South, Suite 300 Federal Way, Washington 98003-2600

In association with

Fehr and Peers Heffron Transportation Merritt Architecture Shannon & Wilson Inc. Widener & Associates

Job No. A12.0149

INTERCHANGE JUSTIFICATION REPORT

SR 509 East D Street Interchange Project Tacoma, Washington

TABLE OF CONTENTS

SECTION PAGE

1.0 POLICY POINT 1: NEED FOR ACCESS POINT REVISION ...... 1 1.1 Summary ...... 1 1.1.1 Transportation Demand ...... 1 1.1.2 Roadway Linkages and Access ...... 2 1.1.3 Traffic Operations ...... 2 1.1.4 Safety ...... 3 1.2 Analysis and Data ...... 3 1.2.1 Forecasting ...... 3 1.2.2 Planned Improvements ...... 4 1.2.3 Operational and Safety Analysis Methods and Assumptions ...... 6 1.3 Existing Conditions (2012) ...... 6 1.3.1 Study Area ...... 6 1.3.2 Transportation Demand ...... 7 1.3.3 Roadway Linkages and Access ...... 7 1.3.4 Traffic Operations ...... 8 1.3.5 Safety ...... 16 1.4 No-Build Option Conditions for 2035 (Design Year) ...... 19 1.4.1 Transportation Demand ...... 19 1.4.2 Roadway Linkages and Access ...... 20 1.4.3 Traffic Operations ...... 20 1.4.4 Safety ...... 27 1.5 No-Build Option Conditions for 2015 (Year of Opening) ...... 29 1.5.1 Transportation Demand ...... 29 1.5.2 Roadway Linkages and Access ...... 30 1.5.3 Traffic Operations ...... 30 1.5.4 Safety ...... 35 1.6 Transportation Demand Management Strategies ...... 35 1.7 Conclusions ...... 36 2.0 POLICY POINT 2: REASONABLE ALTERNATIVES ...... 39 2.1 Summary ...... 39 2.2 Alternatives Developed ...... 39 2.3 Alternative Screening ...... 48 2.4 Recommended Configuration ...... 50 2.5 Conclusions ...... 50 3.0 POLICY POINT 3: OPERATIONAL AND COLLISION ANALYSIS ...... 51 3.1 Summary ...... 51 3.2 Analysis Methods and Assumptions ...... 51 3.2.1 Travel Demand Forecasting ...... 52

City of Tacoma BergerABAM, A12.0149 DRAFT SR 509 East D Street Interchange Project 20 December 2012 Tacoma, Washington Page i of ix 3.2.2 Operational and Safety Analysis ...... 52 3.2.3 Collision Forecast Methodology ...... 52 3.3 Design Year Operations (2035) ...... 52 3.3.1 Transportation Demand ...... 52 3.3.2 Roadway Linkages and Access ...... 55 3.3.3 Traffic Operations ...... 55 3.3.4 Safety ...... 64 3.4 Year of Opening Conditions (2015) ...... 66 3.4.1 Transportation Demand ...... 66 3.4.2 Roadway Linkages and Access ...... 66 3.4.3 Traffic Operations ...... 66 3.4.4 Safety ...... 72 3.5 Midday Conditions ...... 72 3.6 Conclusions ...... 72 4.0 POLICY POINT 4: ACCESS CONNECTIONS AND DESIGN ...... 74 4.1 Summary ...... 74 4.2 Directionality ...... 74 4.3 Access Connections to Public Roads ...... 74 4.4 Design Standards and Deviations ...... 74 4.5 Justification ...... 75 4.6 Conclusion ...... 75 5.0 POLICY POINT 5: LAND USE AND TRANSPORTATION PLANS ...... 76 5.1 Summary ...... 76 5.2 Land Use ...... 76 5.2.1 Current Land Use and Zoning ...... 76 5.2.2 Future Land Use ...... 77 5.2.3 Land Use Impacts ...... 77 5.3 Local Transportation and Land Use Plans ...... 77 5.3.1 City of Tacoma Comprehensive Plan ...... 77 5.3.2 City of Tacoma Capital Facilities Program (Metro Parks Tacoma – Waterway Park) ...... 77 5.3.3 City of Tacoma Shoreline Master Program ...... 78 5.3.4 Tideflats Area Transportation Study ...... 78 5.3.5 Thea Foss Development Authority Master Redevelopment Strategy ...... 78 5.4 Statewide Transportation Plans ...... 79 5.4.1 WSDOT Washington State Transportation Plan ...... 79 5.4.2 WSDOT State Highway System Plan ...... 79 5.5 Regional Transportation Plans ...... 79 5.5.1 Puget Sound Regional Council Transportation 2040 Plan ...... 79 5.5.2 Pierce County Comprehensive Plan...... 79 5.5.3 Sound Transit ...... 80 5.6 Conclusion ...... 80 6.0 POLICY POINT 6: FUTURE INTERCHANGES ...... 81 6.1 Summary ...... 81 6.2 Previous Planning for SR 509 and East D Street Interchange ...... 81 6.3 Other Proposed Projects Considered ...... 81

City of Tacoma BergerABAM, A12.0149 DRAFT SR 509 East D Street Interchange Project 20 December 2012 Tacoma, Washington Page ii of ix 6.3.1 Port of Tacoma Road Interchange with I-5 ...... 81 6.3.2 SR 167 Extension Program ...... 82 6.3.3 Tacoma/Pierce County HOV Program ...... 82 7.0 POLICY POINT 7: COORDINATION...... 83 7.1 Summary ...... 83 7.2 SR 167 Extension Program ...... 83 7.3 Project Funding ...... 83 8.0 POLICY POINT 8: ENVIRONMENTAL PROCESSES ...... 84 8.1 Summary ...... 84 8.2 Environmental Effects ...... 84 8.3 Schedule of Environmental and IJR Decision ...... 84

APPENDICES

Appendix A: Appendix A-1 Methods and Assumptions Technical Memorandum Appendix A-2 Truck Volume Methods and Forecasts Technical Memorandum Appendix A-3 VISSIM Analysis Procedures Technical Memorandum and Response to Comments Appendix A-4 Land Use Technical Memorandum

Appendix B: Final Technical Advisory Committee Recommendation Memorandum

LIST OF TABLES

Table 1-1. Planned/Funded Projects Included in Future Baseline Models (Study Area) ...... 4 Table 1-2. Planned/Funded Projects Included in Future Baseline Models (Region) ...... 5 Table 1-3. LOS Criteria for Freeway Analysis ...... 8 Table 1-4. LOS Criteria for Signalized and Unsignalized Intersections ...... 8 Table 1-5. Freeway LOS 2012 Existing ...... 9 Table 1-6. Intersection LOS 2012 Existing Peak Hour Conditions ...... 11 Table 1-7. Freeway Mainline Collision Rates (November 2008–October 2011) ...... 17 Table 1-8. Freeway Ramp Collision Rates (November 2008-October 2011) ...... 18 Table 1-9. Intersection Collision Rates (2009–2011) ...... 19 Table 1-10. Freeway LOS 2035 No-Build Option Comparison With 2012 Existing ...... 21 Table 1-11. Intersection LOS 2035 No-Build Option Comparison with 2012 Existing – AM Peak Hour Conditions ...... 23 Table 1-12. Intersection LOS 2035 No-Build Option Comparison with 2012 Existing – PM Peak Hour Conditions ...... 23 Table 1-13. Projected Number of Collisions on Mainline Freeway for 2035 No-Build Option ...... 27 Table 1-14. Projected Number of Collisions on Freeway Ramps for 2035 No-Build Option ...... 28 Table 1-15. Projected Number of Collisions at Intersections for the 2035 No-Build Option ...... 29 Table 1-16. 2015 No-Build Option Comparison with 2012 Existing – Freeway LOS ...... 30 Table 1-17. Intersection LOS 2015 No-Build Option Comparison with 2012 Existing – AM Peak Hour Conditions ...... 31

City of Tacoma BergerABAM, A12.0149 DRAFT SR 509 East D Street Interchange Project 20 December 2012 Tacoma, Washington Page iii of ix Table 1-18. Intersection LOS 2015 No-Build Option Comparison with 2012 Existing – PM Peak Hour Conditions ...... 32 Table 1-19. TEEM Model TDM Analysis Results ...... 37 Table 3-1. 2035 Design Year Mainline Freeway Operations Summary ...... 56 Table 3-2. Queuing at SR 509/I-705 Ramps Intersection ...... 57 Table 3-3. Intersection LOS 2035 Design Year – AM Peak Hour Conditions ...... 60 Table 3-4. Intersection LOS 2035 Design Year – PM Peak Hour Conditions ...... 61 Table 3-5. Comparable Freeway Segments Collision Rates ...... 64 Table 3-6. Projected Number of Collisions for 2035 on SR 509 Between I-705 and East Portland Avenue Ramps – Recommended Configuration and No-Build Option .... 65 Table 3-7. 2015 Opening Year Mainline Freeway Operations Summary...... 67 Table 3-8. Intersection LOS 2015 Opening Year – AM Peak Hour Conditions ...... 68 Table 3-9. Intersection LOS 2015 Opening Year – PM Peak Hour Conditions ...... 69 Table 4-1. Interchange Spacing ...... 74

LIST OF FIGURES

Figure 1-1. Existing traffic volumes on SR 509 by time of day ...... 7 Figure 1-2. Freeway segment locations – Existing and No-build options ...... 10 Figure 1-3. Study area intersections ...... 13 Figure 1-4. Existing intersection turning movements and level of service – page 1 ...... 14 Figure 1-5. 2035 No-Build Option intersection turning movements and level of service – page 1 ...... 25 Figure 1-6. No-Build Option intersection turning movements and level of service – page 1 ...... 33 Figure 2-1. Alternatives considered and evaluated for access point revision ...... 40 Figure 2-2. Alternatives considered and evaluated for access point revision ...... 41 Figure 2-3. Alternatives considered and evaluated for access point revision ...... 42 Figure 2-4. Alternatives considered and evaluated for access point revision ...... 43 Figure 2-5. Alternatives considered and evaluated for access point revision ...... 44 Figure 2-6. Alternatives considered and evaluated for access point revision ...... 45 Figure 2-7. Alternative considered and evaluated for access point revision ...... 46 Figure 3-1. Peak demand volume changes ...... 54 Figure 3-2. Freeway segment locations. Recommended configuration...... 58 Figure 3-3. 2035 Recommended Configuration intersection turning movements and level of service – page 1 ...... 62 Figure 3-4. Recommended Configuration intersection turning movements and level of service – page 1 ...... 70

City of Tacoma BergerABAM, A12.0149 DRAFT SR 509 East D Street Interchange Project 20 December 2012 Tacoma, Washington Page iv of ix INTERCHANGE JUSTIFICATION REPORT SR 509 EAST D STREET INTERCHANGE PROJECT TACOMA, WASHINGTON

EXECUTIVE SUMMARY

PROJECT DESCRIPTION The Interstate 5 (I-5) corridor in Pierce County is a vital north-south transportation corridor for western Washington. Efficient and safe transportation for people and goods along the corridor is essential to the economic health of the state and central Puget Sound. State Route 509 (SR 509) runs parallel to I-5 and increases road capacity for commercial traffic through Tacoma. There is currently no direct access to East D Street from SR 509. Trucks and other vehicles traveling to this area of the Tideflats must gain access via surface streets or via southbound SR 509 to Downtown Tacoma and then backtrack to the Thea Foss peninsula. Therefore, the City of Tacoma (City) is leading a project to construct a new interchange on SR 509 at East D Street, called the “SR 509 East D Street Interchange Project.” The proposed new interchange of SR 509 will link commercial activities in Tacoma and the Port of Tacoma (Port) with regional, state, and international markets.

The mission of the project is to construct a new interchange that will link SR 509, the Thea Foss Waterway area, the Tacoma Dome District, the Tideflats area, and the BNSF intermodal yard, especially with respect to freight and trucks. The project also will improve access, mobility, and emergency access while maintaining adequate operations on the adjoining local, state, and federal facilities. The proposed East D Street Interchange project takes advantage of previous transportation investments, including the recently constructed D Street overpass project and regional transit facilities at the Tacoma Dome Station (see vicinity map).

This report documents planning, traffic analysis and environmental review findings necessary to request an access revision to SR509, which is classified as a National Highway System (NHS) route.

DESCRIPTION OF PROPOSED ACTION A thorough alternatives development and screening process identified Alternative 10 – Eastbound Undercrossing as the Recommended Configuration. The proposed action will create an at-grade southbound off-ramp for SR 509 at East D Street that terminates at a new signalized intersection just north of the existing SR 509 Cable Stayed Bridge. The northbound SR 509 on- ramp begins at the same signalized intersection, then crosses under SR 509 and merges onto the mainline from the south.

The City-led effort to select the Recommended Configuration included participation by representatives of the Washington State Department of Transportation (WSDOT), the Federal Highway Administration (FHWA), and the Port. Alternative 10 was identified as the Recommended Configuration because the analysis showed it to be the most efficient plan to

City of Tacoma BergerABAM, A12.0149 DRAFT SR 509 East D Street Interchange Project 20 December 2012 Tacoma, Washington Page v of ix meet the project’s goals while having the least amount of impacts to the natural environment and surrounding business.

CONSISTENCY WITH POLICY POINTS This interchange justification report (IJR) provides support for the FHWA eight policy points as described in this summary and in the following text.

EIGHT POLICY POINTS The Technical and Stakeholders Advisory committees of the SR 509 East D Street Interchange Project established the purposes of the project: the provision of the efficient movement of traffic into and out of the Port and surrounding areas (especially for trucks), and the improvement of safety and reliability of access to local and area businesses while balancing effects to the natural and community environments. The Recommended Configuration satisfies the project’s objectives. This IJR provides support for FHWA’s eight policy points.

Policy Point 1 describes the need for the proposed access point revision. The operational analysis documented for SR 509 near East D Street showed that limited connections between the study area and the Port, coupled with steady growth over the next 20 years, will force much of the growth onto I-5 and local streets, which currently operate below acceptable levels of service (LOS).

Policy Point 2 describes all the alternatives considered in the process of identifying the Recommended Configuration to address the project’s connectivity goals. Alternatives evaluated included no build, or Transportation Demand Management, as well as build alternatives. A two-tiered screening process led to the proposed action. The Recommended Configuration satisfies access needs without negative impacts on highway operations or the local network. A configuration to provide a southbound exit from SR 509 and a northbound entrance from East D Street was found to best satisfy the project’s purpose and need and is the Recommended Configuration.

Policy Point 3 presents the Recommended Configuration’s ability to maintain the system’s performance. The Recommended Configuration will maintain adequate LOS on SR 509 while facilitating mobility to the Port and local and area businesses through the construction of a new half interchange.

The Recommended Configuration provides for limited directional access between SR 509 and East D Street. The proposed new design meets geometric and design standards as described in Policy Point 4.

As required by Policy Point 5, the Recommended Configuration is compatible with the land use and transportation plans for the area, including the Washington Transportation Plan, the WSDOT Highway System Plan, the Puget Sound Regional Council Transportation 2040 Plan, the Pierce County Comprehensive Plan, Sound Transit Sound Move, and the comprehensive plans of the cities of Tacoma and Pierce County.

City of Tacoma BergerABAM, A12.0149 DRAFT SR 509 East D Street Interchange Project 20 December 2012 Tacoma, Washington Page vi of ix As required by Policy Point 6, the design process included future or in-progress interchanges.

Policy Point 7 documents the status of coordinating projects. While the SR 509 East D Street Interchange Project is a stand-alone project that does not require the completion of other projects to function, the design assumed that several projects in the project vicinity have been or will be completed.

Policy Point 8 documents the status of the proposal’s environmental processes and the schedule for its expected completion. The project is expected to be classified as a Documented Categorical Exclusion and does not require the preparation of an environmental impact statement. Applicable permits will not be determined until an environmental review is substantially complete and the final IJR has been reviewed.

City of Tacoma BergerABAM, A12.0149 DRAFT SR 509 East D Street Interchange Project 20 December 2012 Tacoma, Washington Page vii of ix MARKET ST S 11TH ST

509 705 E 19TH ST

99 PACIFIC HWY

S C ST EELLS ST PUYALLUP AVE 5

E 26TH ST E E 27TH ST AV AY ST E Y B IL TH ST W 28 E L ST E E D ST City of Fife Y A W S 27TH ST A M O C TA H T E PORTLAND AVE U E ROOSEVELT AVE S O City of Tacoma S 30TH ST

5 E 34TH ST S 34TH ST 7 E FAIRBANKS ST

Jefferson 405 Alternative Alignment Kitsap King City Limits

90

Mason FIGURE E-1 Vicinity Map 5 Pierce Thurston SR 509 East D street Interchange Improvements Project 0 500 1,000 Feet 705

509

FEDERAL WAY Proposed Interchange Construction 99 Direction of Travel TACOMA 509 1705 5 FIGURE E-2 16 FIFE Alternative 10 - Eastbound Undercrossing 167

7 SR 509/East D Street Interchange Project City of Tacoma 1.0 POLICY POINT 1: NEED FOR ACCESS POINT REVISION What are the current and projected needs for access along SR 509? Can existing and planned roadway projects meet the mobility and access needs for trucks, autos, and emergency vehicles?

1.1 Summary The City of Tacoma (City) is currently evaluating the addition of a new interchange on SR 509 at East D Street, called the “SR 509 East D Street Interchange Improvements Project.”

Policy Point 1 examined the need for the access point revision consistent with the stated goals of the project. This section summarizes the identified needs around the following categories:

Category of Need Primary Findings Transportation demand • Traffic volumes will increase by 2035 due to local and regional growth • Limited connections force much of growth onto I-5 and local streets. Roadway linkages and • The study area provides limited connectivity for autos, trucks, and access emergency vehicles • Vehicles often backtrack through downtown Tacoma or use congested city streets. Traffic Operations • I-5 is heavily congested, while SR 509 has ample capacity. • SR 509 operations constrained by congestion on Pacific Avenue • Queues on Puyallup Avenue at Portland Avenue limit accessibility to study area Safety • Traffic collision rates are comparable to roadways in other urban areas

The following subsections discuss each of these points with details provided in subsequent sections of Policy Point 1.

1.1.1 Transportation Demand Traffic volumes in the project area are expected to increase in 2035 due to increased trade activities at the Port of Tacoma (Port) and expanded residential and employment opportunities within the City as well as regional growth in population and employment throughout the Puget Sound area.

Between 2012 and 2035, PM peak hour traffic volumes on study area streets are expected to increase by approximately 26 percent, for an annual growth rate of 1.02 percent. Volumes on the major freeways serving the area (i.e., Interstate 5 [I-5], I-705, and State Route [SR] 509) are forecasted to increase at a slower rate (0.71 percent annually and 18 percent total) because of the capacity constraints that exist on these regional facilities. While growth rates were higher from 1990 through the mid-2000s, in more recent years, growth has been relatively flat, partly because of roadway capacity constraints but also because of the 2008 recession.

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Limited roadway connections will focus much of the expected growth onto I-5 and local streets within the study area. SR 509 will remain relatively underutilized.

To provide an accurate traffic forecast, a detailed travel demand analysis was performed using land use forecasts and the regional travel demand model developed by the Puget Sound Regional Council (PSRC), along with land use data from the City.

1.1.2 Roadway Linkages and Access The regional freeways and local arterials within the project study area operate as a system, with congestion and delays affecting both upstream and downstream operations. Traffic queues at an intersection can back up onto the freeway mainline, resulting in increased congestion and delay.

The limited connectivity in the study area causes motorists to take circuitous routes to reach their destinations. No convenient, direct route exists between the eastern area of the Port and the Thea Foss peninsula. Trucks and other vehicles either travel on surface streets or take SR 509 southbound to Downtown Tacoma and then backtrack to the Thea Foss peninsula and the BNSF intermodal yard. For these reasons, the City is evaluating options to improve connectivity by constructing new SR 509 ramps at D Street.

Given the limited connectivity between the eastern area of the Port and the Thea Foss peninsula, emergency access to and from the study area is also a concern. The Tacoma Fire Department currently operates a fire station on the Thea Foss peninsula on East F Street, just north of E 11th Street. There are also nearby fire stations in Downtown Tacoma and southeast of the I-5/I-705 interchange. Under the No-Build Option, there would be few redundant routes into and out of the study area for emergency access. With arterial volumes expected to increase by 26 percent over existing volumes by 2035, emergency response times would likely increase due to congestion.

1.1.3 Traffic Operations The freeway analysis investigated freeway traffic conditions on I-705 from I-5 to the Schuster Parkway transition and on SR 509 from I-705 to east of Portland Avenue. Both of these routes are important to providing commuters and freight with access to Downtown Tacoma and the Port. With some exceptions, I-705 and SR 509 experience relatively little traffic congestion during both the AM and PM peak hours for the 2035 No-Build Option and the year of opening 2015 No-Build Option. However, travel speeds on SR 509 are affected by traffic operations at the I-705 interchange signal, which can cause slowdowns southbound along SR 509 during the PM peak hours. Variable traffic conditions on I-5 can create backups along I-705 approaching I-5.

In 2035, during the PM peak hour, six of the 15 study intersections would operate at LOS E or F, including four unsignalized intersections along Portland Avenue/St. Paul Avenue corridor: Portland Avenue/East 26th Street, Portland Avenue/East 25th Street/Puyallup Avenue ramps, Portland Avenue/St. Paul Avenue, 15th Street/St. Paul Avenue. Other congested intersections are Pacific Avenue/21st Street and East D Street/Puyallup

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Avenue. Under existing 2012 conditions, two of these intersections – Portland Avenue/East 26th Street and Pacific Avenue/21st Street – are already operating at LOS F. The intersection of SR 509 and I-705 is expected to operate at LOS D in 2035, but the SR 509 traffic operations will be constrained by southbound vehicles backing up through the I-705 interchange from the congestion at Pacific Avenue/21st Street and queues that extend past the southbound left turn lanes onto I-705.

Vehicles traveling east/west on Puyallup Avenue can also encounter long queues at the Portland Avenue intersection. This results in delays for vehicles moving between the eastern part of the Tideflats and the Thea Foss peninsula.

1.1.4 Safety To provide background for the safety analysis, existing collision data were obtained from WSDOT and the City. These data confirmed that the collision rates on the mainline SR 509 and I-705 freeway corridors are generally low. More than two-thirds resulted in property damage only. No fatal collisions were recorded on the mainline study segments during the 3 years for which data were collected. At the arterial intersections, collision rates were consistent with those of other urban arterials around the region. No fatal collisions were reported.

1.2 Analysis and Data To demonstrate the need for the proposed improvements at the SR 509/East D Street interchange, operation analyses were performed using methods and procedures endorsed by the City and WSDOT (Appendix A-1). This analysis considered 2015 as the opening year to allow a realistic timeline to obtain funding, complete design and environmental documentation, acquire necessary right of way and permits, and complete construction on any selected interchange improvements. Year 2035 was identified as the design year based on available land use and traffic forecasts. Both AM and PM peak periods were analyzed to determine operational conditions.

1.2.1 Forecasting The memorandum that constitutes Appendix A-1 describes the methodology for developing future year travel demand volume forecasts. The memo describes the development of the travel demand forecasting model and lists the assumptions it uses. This methodology was approved by the City, WSDOT, and FHWA.

Truck volumes were forecast using a separate methodology, which was reviewed and approved by the same agencies. Port development forecasts were used to estimate future truck growth for Port-related uses. Growth in numbers of non-Port trucks was forecast based on expected increases in industrial and warehouse employment throughout the Tideflats area. Appendix A-2: Truck Volume Methods and Forecasts Technical Memorandum contains details about truck forecasts.

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1.2.2 Planned Improvements Future planned improvements assumed to be constructed by the opening year (2015) and design year (2035) are presented in Table 1-1 for the study area and Table 1-2 for the larger region.

Funded improvements were assumed in the 2015 baseline model. These include a number of regional projects, such as constructing HOV lanes on I-5 and widening projects on state routes. The model also includes arterial widening projects found in the Transportation Improvement Projects (TIPs) from Pierce County and the cities of Tacoma, Federal Way, and Fife. The 2035 baseline model also includes the effects of funded improvements to the regional transit system such as planned extensions to Sound Transit light rail and enhancements to commuter rail and express bus, King County Rapid Ride, and park-and-ride improvements. A critical assumption was to include the extension of SR 167 to I-5 in the 2035 analysis. This roadway addition was identified as a critical improvement needed to maintain sufficient operations in the study area. Without the improvement, the model’s forecast indicated that the area’s transportation system would be over capacity, which would lead to severe congestion and poor system-wide operations.

Table 1-1. Planned/Funded Projects Included in Future Baseline Models (Study Area) In 2015 In 2035 Project Description Model Model Tideflats Area Access Projects Port of Tacoma Road Interchange - Reconstruct interchange between SR 509 and I-5. Reconstruct 34th Avenue E and 12th Street E to a 3-lane roadway. X Include southbound truck lane on Port of Tacoma Road. Canyon Road E from 72nd Street E to Pioneer Way E - Widen roadway to X provide additional lane(s). I-5 HOV lanes - Extend from 54th Avenue E (SB lane)/Port of Tacoma Road X (NB Lane) to SR 16, WSDOT SR 167 extension - Construct 2-lane freeway between SR 509 and SR 161. X Port Access Projects Lincoln Avenue Bridge - Portland Avenue to Marc Avenue. Replace part of the X X bridge deck, bridge bearings, repair rails and sidewalks, re-paint. Lincoln Avenue & Port of Tacoma Road - Add traffic signal. X Murray Morgan Bridge - E 11th Street between A Street and D Street. X X Rehabilitate bridge. 11th Street Bridge - Renovate to accommodate trucks. X X Hylebos Bridge - Rehabilitate the bridge including a new deck, sidewalk, and X X guardrails. Extend A/D rail line east across Alexander Avenue to Taylor Way. The Port is planning to increase arrival/departure train lengths from 8,000 feet to X X 10,000 feet.

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In 2015 In 2035 Project Description Model Model Industrial Access Projects Puyallup Avenue Bridge - Replace 2 of 5 bridge structures, increasing total lanes to 4. Widen to 6 lanes at approach to Portland Avenue. Widen X intersection at Portland Avenue with turn lanes/through lanes 70th Avenue E corridor - 20th Street East to UPRR. Widen existing two-lane X X arterial to 5 lanes. 70th Avenue E - 20th Street E to Pacific Highway E. – Realign and X reconstruct to 4-lane roadway section. 20th Street E - Port of Tacoma Road to 63rd Avenue E. Reconstruct to a 3- X lane roadway. Valley Avenue - Widen existing two-lane arterial to 4 lanes between 70th Avenue E and Freeman Road E. Add fifth lane east of Freeman Road E and X restripe the eastbound right-turn lane to through/right-turn. Local Access Projects Freeman Road - 20th Avenue E to N Levee Road. Reconstruct to 3-lane X roadway. Puyallup Avenue (Portland Ave to Pacific Ave) - Construct road diet. Reduce X cross section to 3 lanes. Portland Avenue – Add signal control to SR 509 Southbound on-ramp and X X Northbound off-ramp intersections East 26th Street – Add signal control to I-705 off-ramp X X

Table 1-2. Planned/Funded Projects Included in Future Baseline Models (Region) In 2015 In 2035 Sponsor Project Description Model Model Regional Roadways WSDOT SR‐16 HOV lanes, I‐5 to Olympic Drive X X WSDOT SR‐161 widening, S 360th St to 24th St E X X WSDOT SR 167 interchange with I-5 (2035 only) X WSDOT SR‐410, widen to 4‐lanes, 214th Ave to 234th Ave X X Federal Way S 356th St ‐ widen to 5 lanes to SR 99 X X Pierce 176th St E ‐ widen to 4 lanes, SR‐7 to SR‐161 X X County Pierce Canyon Rd E ‐ 106th St E to 192nd St E X County Pierce Canyon Rd E ‐ extend major arterial from 192nd St E to SR‐7 X County Pierce Canyon Rd E ‐ widen to 5 lanes, 84th St E to 99th St E X County

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In 2015 In 2035 Sponsor Project Description Model Model Transit Projects Sound Light Rail Initial Segment ‐ S 200th to UW (2016) X Transit Sound Light Rail Extension ‐ UW to Northgate, Seattle to Bellevue X X Transit (2015) Sound Light Rail Extension ‐ Bellevue to Overlake Transit Center X Transit (2021) Sound Light Rail Extension ‐ Northgate to Lynnwood, SeaTac to S X Transit 272nd (2023) Sound Light Rail stations ‐ Redondo/Star Lake, Jackson Park, X Transit Shoreline, Bel‐Red, Overlake Sound Express Bus Service Increase (Based on latest SIP) X X Transit Sound Commuter Rail Service Increase Tacoma‐Seattle (late 2012) X X Transit Sound Commuter Rail Extension ‐ Tacoma to Lakewood (late 2012) X X Transit

1.2.3 Operational and Safety Analysis Methods and Assumptions Operational analysis methods and assumptions were based on the 2000 Highway Capacity Manual methodology for intersections and the 2010 Highway Capacity Manual for freeway segments. To provide a better understanding of existing and future conditions, a VISSIM micro-simulation model was constructed to provide a detailed analysis of intersection and freeway operations. The VISSIM model shows the interactions between a wide variety of factors including signal timing, traffic volumes, free-flow speeds, saturation flows, and roadway geometrics. Appendix A-3: VISSIM Analysis Procedures Technical Memorandum consists of a summary of these assumptions. For study area intersections not acting as critical access points to I-705 and SR 509, Synchro 7 software was used to analyze operations.

1.3 Existing Conditions (2012) The Existing Conditions analysis reviews the traffic operations and safety of the current facilities. The traffic operations analysis evaluates the study area’s freeway and intersection performance for 2012 conditions. The safety analysis reviews the historical collision data, reviewing the frequency and type of collisions for freeways, ramps, and intersections.

1.3.1 Study Area The project limits for the physical roadway improvements are as follows: • SR 509: From the SR 509/I-705 interchange to the SR 509/Portland Avenue E interchange. (SR 509 Milepost Boundaries: 0.00 – 1.47) • East D Street: From E 25th Street to E 18th Street.

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The project limits for the traffic analysis and modeling include the roadways above, along with the following additions: • Freeway: I-705: From I-5 through downtown Tacoma • Intersections: Fifteen intersections bounded by 17th Street to the north, Portland Avenue to the east, I-5 to the south, and Pacific Avenue to the west. The intersection analysis includes all freeway ramp access points to/from I-5 and I-705 within the boundary mentioned above.

1.3.2 Transportation Demand Figure 1-1 displays the current traffic volume patterns on SR 509 immediately east of the I-705 interchange. Total traffic volumes peak in the morning and afternoon. However, truck traffic increases steadily between 5 and 7 AM and then stays relatively flat throughout the day, peaking slightly in the late afternoon. Since the total traffic travel pattern indicates surges in volume during the morning and afternoon, both the AM and PM peak hours were analyzed.

Figure 1-1. Existing traffic volumes on SR 509 by time of day

1.3.3 Roadway Linkages and Access The limited roadway connectivity in the study area requires some motorists to take circuitous routes. There are limited convenient, direct routes between Port terminals and the Thea Foss peninsula. Trucks and other vehicles in the Port area must travel on surface streets or take SR 509 southbound to Pacific Avenue in Downtown Tacoma and then backtrack to the Thea Foss peninsula and Dome District on Puyallup Avenue.

One of the purposes of this project is to provide redundant emergency vehicle access to and from the study area. The Tacoma Fire Department currently operates a fire station on the Thea Foss peninsula on East F Street, just north of East 11th Street. There are also nearby fire stations in Downtown Tacoma and southeast of the I-5/I-705 interchange.

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These emergency vehicles must use existing city streets and the available SR 509 access points to provide service to properties inside and out of the study area.

1.3.4 Traffic Operations The regional freeways and local arterials within the study area operate as a system, with congestion and delays affecting both upstream and downstream operations. Using the VISSIM model, the analysis evaluated freeway traffic operations and calculated the level of service (LOS) of study area intersections.

Freeway LOS is determined by the density of traffic based on the passenger cars per mile per lane. Table 1-3 summarizes the LOS criteria for each freeway segment type (e.g., basic, weaving, and merge/diverge areas). WSDOT uses an LOS D standard for the analysis of urban freeways.

Table 1-3. LOS Criteria for Freeway Analysis Density (pc/mi/ln) LOS Basic Freeway Freeway Weaving Merge and Diverge Segment Segment Area A 0-11 0-10 0-10 B >11-18 >10-20 >10-20 C >18-26 >20-28 >20-28 D >26-35 >28-35 >28-35 E >35-45 >35 >35 >45 or demand Demand exceed Demand exceeds F exceeds capacity capacity capacity pc/mi/ln = passenger cars per mile per lane Source: Highway Capacity Manual 2010

The study also evaluated the performance of key intersections using an LOS measure that calculates the average delay per vehicle at the intersection. The intersection delay for a signalized intersection takes into account the delay caused by the signal control and the queue delay caused by spilling and storage blockage from the adjacent intersections in the network. Table 1-4 summarizes the LOS criteria for signalized and unsignalized intersections. Both the City and WSDOT apply an LOS standard of D to intersections within the study area.

Table 1-4. LOS Criteria for Signalized and Unsignalized Intersections Signalized Stopped Unsignalized Average LOS Delay per Vehicle Total Delay per Vehicle Description (seconds) (seconds) A 0-10 0-10 Little or no delay B 10-20 10-15 Short delays C 20-35 15-25 Average delays D 35-55 25-35 Long delays E 55-80 35-50 Very long delays Failure - extreme F >80 >50 congestion

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Freeway Operations Table 1-5 summarizes the AM and PM peak hour results of the freeway operations analysis for the I-705 and SR 509 segments shown in Figure 1-2. The entire length of I-705 from north of the I-5 interchange to the terminus/transition into Schuster Parkway was included in the analysis. The SR 509 analysis area included the basic segments directly east of the I-705 single-point urban interchange (SPUI)1, the merge/diverge areas for the Portland Avenue half-diamond interchange, and the basic segments between the Portland Avenue ramps and Port of Tacoma Road.

During the AM peak hour, all 14 freeway segments operate at LOS B, indicating relatively low congestion. For the PM peak hour, six freeway segments operate at LOS C, pursuant to the higher demand volumes in the afternoon. Because southbound SR 509 transitions from a freeway to arterial facility west of the Portland Avenue on-ramp, queuing at the SR 509/I-705 ramps signalized intersection could potentially impact freeway mainline operations if any of the intersection’s southbound movements experience high delay. Currently, there is no operational issue at the SR 509/I-705 ramps intersection.

Table 1-5. Freeway LOS 2012 Existing AM Peak Hour PM Peak Hour ID* Location Type Density/LOS Density/LOS I-705 Northbound 1 I-5 On-ramp to SR 509 Off-ramp Weave 14/B 19/B 2 15th Street/A Street Off-ramp Diverge 11/B 17/B 3 SR 509 On-ramp to Schuster Parkway Basic 12/B 21/C I-705 Southbound 4 9th Street On-ramp Merge 16/B 25/C 5 9th Street On-ramp to 13th Street On-ramp Basic 17/B 25/C 6 13th Street On-ramp to SR 509 Off-ramp Weave 16/B 21/C 7 SR 509 Off-ramp to On-ramp Basic 17/B 15/B 8 SR 509 On-ramp to I-5 Off-ramp Weave 16/B 16/B SR 509 Northbound 9 I-705 Off-Ramp to Portland Avenue Off-ramp Basic 15/B 20/C 10 Portland Avenue Off-ramp Diverge 15/B 20/B 11 Portland Avenue Off-ramp to Port of Tacoma Road Basic 12/B 17/B SR 509 Southbound 12 Port of Tacoma Road to Portland Avenue On-ramp Basic 12/B 17/B 13 Portland Avenue On-ramp Merge 13/B 19/B 14 Portland Avenue On-ramp to I-705 On-Ramp Basic 14/B 21/C *Refer to Figure 1-2 Note: Average volumes based on 10 VISSIM runs. The average density in vehicles per lane-mile for the study segment is reported. Density measured in passenger cars/mile/lane. Bold indicates that LOS does not meet City or WSDOT standards. Source: Fehr & Peers, 2012.

1 The start of the basic SR 509 segments just east of I-705 is offset approximately 1,200 feet from the SPUI to minimize the impact of signal delay/queuing on the measured freeway density.

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Figure 1-2. Freeway segment locations – Existing and No-build options

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Intersection Operations Fifteen intersections in the study area were evaluated, including major intersections and ramp termini (Figure 1-3). Nine intersections were analyzed with the VISSIM software, and seven were analyzed using Synchro 7. Figure 1-4 provides AM and PM peak hour volumes by movement, intersection channelization and traffic controls, and the calculated LOS. Table 1-6 summarizes the intersection control delay and LOS conditions for the AM and PM peak hours. The LOS at each intersection is determined by average control and queue delays per vehicle in seconds.

Five of the study intersections have side-street stop-control, and nine are signalized. The remaining intersection is an uncontrolled freeway on-ramp.

Aside from the following, during both the AM and PM peak hours, all intersections operate at LOS D or better: • Portland Avenue/East 26th Street – operates at LOS E during the AM peak hour. This delay comes almost exclusively from the eastbound left-turning movement, where drivers have difficulty finding gaps in the heavy northbound-southbound traffic flow. If this small eastbound-left traffic volume diverted to other routes, the intersection LOS would be C (with 16 seconds of delay). • Portland Avenue/East 26th Street – operates at LOS F with extremely high delay during the PM peak. The source of the high delay, as during the AM peak, is eastbound left-turning traffic. If this volume diverted to other routes, the intersection would operate at LOS C (with 21 seconds of delay). • Pacific Avenue/East 21st Street – operates at LOS F during the PM peak. With the current signal splits, the southbound left-turn movement is not provided enough green-time, creating high delay and long queues on the southbound intersection approach.

Vehicles traveling east/west on Puyallup Avenue can also encounter long queues at the Portland Avenue intersection. While the overall intersection LOS meets the City’s standards, the travel patterns through the intersection and signal timings often result in delays for vehicles moving between the eastern part of the Tideflats and the Thea Foss peninsula.

Table 1-6. Intersection LOS 2012 Existing Peak Hour Conditions AM Peak Hour PM Peak Hour Traffic Highest Highest Intersection LOS/ LOS/ Control Delay Delay Delay Delay Movement* Movement* 1 Portland Avenue/East28th Street Signal 21/C - 24/C - 2 Portland Avenue/East 27th Street Signal 20/B - 27/C - 3 Portland Avenue/East 26th Street SSSC 48/E EBL >250/F EBL Portland Avenue/East 25th 4a SSSC 14/B EBL 19/C EBL Street/Puyallup Avenue

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AM Peak Hour PM Peak Hour Traffic Highest Highest Intersection LOS/ LOS/ Control Delay Delay Delay Delay Movement* Movement* Portland Avenue/Puyallup Avenue/Eells 4b Signal 16/B - 27/C - Street 5 Portland Avenue/SR 509 NB Off-ramp SSSC 29/D EBL 16/C EBL 6 Portland Avenue/SR 509 SB On-ramp Unct. 4/A NBL 20/C NBL 7 Portland Avenue/St. Paul Avenue SSSC 16/C EBR 13/B EBL 8 East 15th Street/St. Paul Avenue SSSC 12/B NBL 11/B NBL 9 Pacific Avenue/East 21st Street Signal 25/C - 94/F - 10 SR 509/I-705 Ramps Signal 21/C - 38/D - 11 East 26th Street/I-705 Off-ramp SSSC 9/A NBL 18/C NBL 12 East D Street/East 26th Street Signal 7/A - 10/A - 13 East D Street/East 25th Street Signal 9/A - 9/A - 14 East D Street/Puyallup Avenue Signal 18/B - 25/C - 15 East D Street/Dock Street Extension Signal 21/C - 24/C - 16 SR 509 Ramps/East D Street - - - - - Note: Bold indicates that LOS does not meet current City or WSDOT standards. SSSC = Side-Street Stop-Controlled. Unct. = Uncontrolled. EBL = eastbound left. EBR = eastbound right. NBL = northbound left. SR 509 Ramps/East D Street intersection does not exist under 2012 existing conditions. *Determines delay at unsignalized intersections. Source: Fehr & Peers, 2012.

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Figure 1-3. Study area intersections

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Figure 1-4. Existing intersection turning movements and level of service – page 1

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Figure 1-4. Existing intersection turning movements and level of service – page 2

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1.3.5 Safety The safety analysis is based on 3 years (roughly 2009 through 2011) of historical collision data collected from WSDOT and the City. The analysis looks at collision rates by facility type (freeway, ramp, and intersection), by collision type, and by category of severity. Review of historical collision data provides an indication of the location and severity of incidents at intersections and along corridors.

Historical analysis is useful in understanding the typical types of collisions that occur at a particular location; however, the data may not be indicative of future collision rates or causes. A number of factors that can contribute to collisions include: • Traffic congestion (ability to maneuver) • Driver skills (driver age and experience) • Driver behavior (speeding, aggressiveness, driving while intoxicated) • Roadway geometrics (sight distance) • Weather conditions (rain, glare, snow) • Nature (animals, fallen trees) • Vehicle condition, equipment and maintenance (brakes, tires) • Roadway condition (pavement condition)

Because collisions are often caused by multiple factors, not all collisions can be attributed to a single cause. However, consistent trends in the frequency or type of collisions over time may indicate issues related to the geometrics of a facility.

Freeway Segments Three years (November 2008–October 2011) of freeway collision data are summarized in Table 1-7 and Table 1-8. WSDOT uses collisions per million vehicle miles (MVM) to calculate a rate that allows comparison between the segments of the freeway. The collision rate is as follows:

Freeway Segment Collision Rate = (Total Collisions x 1 million)/(3 x ADT x 365 x length)

The freeway mainline collision analysis identifies the segment location, traffic volume, and number of collisions as well as the collision and fatality rates. Within the project area, freeway mainline collisions were highest southbound on I-705 between the SR 509 on-ramp and the I-5 off-ramp (1.19 collisions per MVM) and lowest on SR 509 northbound from the E Portland Avenue off-ramp to S Frontage Road off-ramp. Property damage collisions comprised more than two-thirds of the total collisions, and there were no fatalities recorded over the 3-year period. Table 1-7 summarizes the results of the freeway mainline collision rates for November 2008-October 2011.

According to the 2010 Washington State Collision Data Summary, the average collision rate for interstates in urban areas was 1.25 per MVM. None of the mainline segments studied exceed the statewide average rate for urban interstates.

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Table 1-7. Freeway Mainline Collision Rates (November 2008–October 2011) Collision Fatality Total Mainline Segment ADT Rate Rate (2008–11) (MVM) (100MVM) SR 509 Northbound I-705 NB On-ramp to E Portland Avenue Off-ramp 21,460 6 0.32 0.00 E Portland Avenue Off-ramp to S Frontage Road Off-ramp 18,430 3 0.15 0.00 Sub Total 9 SR 509 Southbound N Frontage Road On-ramp to E Portland Avenue On-ramp 18,960 10 0.42 0.00 E Portland Avenue On-ramp to I-705 NB Off-ramp 23,220 5 0.26 0.00 Sub Total 15 I-705 Northbound I-5 On-ramp to SR 509 Off-ramp 26,080 4 0.70 0.00 SR 509 Off-ramp to SR 509 On-ramp 20,020 2 0.37 0.00 SR 509 On-ramp to Schuster Parkway 26,780 10 0.52 0.00 Sub Total 16 I-705 Southbound 9th Street On-ramp to 13th Street On-ramp 29,980 5 0.51 0.00 13th Street On-ramp to SR 509 Off-ramp 36,790 8 0.57 0.00 SR 509 Off-ramp to SR 509 On-ramp 29,930 7 0.57 0.00 SR 509 On-ramp to I-5 Off-ramp 38,510 18 1.19 0.00 Sub Total 38 Total 78

The predominant types of collisions on freeways are rear end collisions; these account for 41 percent of the total within the corridor (codes 6 and 16). Categories of sideswipe collisions made up 13 percent of freeway collisions in the I-705 and SR 509 corridors. Single vehicle collisions made up 35 percent of freeway collisions.

Freeway Ramps Typical collision rates on ramps within the project area ranged from zero to 11.44 collisions per MVM. The East Portland Avenue on-ramp onto SR 509 southbound had no collisions over the 3-year analysis period. The highest collision rate was for the 9th Street on-ramp to southbound I-705. Two fatalities occurred during the analysis period: one on the I-705 northbound on-ramp from East 21st Street/SR 509 and the other on the 15th Street off-ramp from northbound I-705.

Table 1-8 presents the freeway ramp collision rates in the study area.

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Table 1-8. Freeway Ramp Collision Rates (November 2008-October 2011) Total Collision Rate Fatality Rate Length ADT (2008–11) (MVM) (100MVM) SR 509 Northbound East Portland Avenue Off-ramp 0.32 3,030 1 0.94 0.00 SR 509 Southbound East Portland Avenue On-ramp 0.38 4,260 0 0.00 0.00 I-705 Northbound SR 509/E 21st St Off-ramp 0.21 6060 6 4.31 0.00 SR 509/E 21st St On-ramp 0.27 11530 2 0.59 29.3 15th Street Off-ramp 0.48 1830 11 11.44 104.0 A Street Off-ramp 0.27 2940 0 0.00 0.00 Sub Total 19 I-705 Southbound 9th Street On-ramp 0.17 9860 21 11.44 0.00 13th Street/A Street On-ramp 0.12 6810 4 4.47 0.00 SR 509/E 21st St Off-ramp 0.25 6860 4 2.13 0.00 SR 509/E 21st St On-ramp 0.22 8580 10 4.84 0.00 Sub Total 39 Total 59

Rear-end collisions were the predominant type of ramp collisions, accounting for 46 percent of the total within the study area. Single vehicle collisions made up 34 percent of the collisions on the freeway ramps, all but one of which related to striking an obstruction or other stationary object. The remaining collision involved a vehicle striking a pedestrian.

Local Intersections Local intersection collision rates were analyzed using City data from January 2009 to December 2011. The intersection collision rate uses the number of collisions and the annual daily traffic entering an intersection. The intersection collision rate is as follows:

Intersection Collision Rate = (Total Collisions x 1 million)/(3 years x ADT x 365)

As shown in Table 1-9, the highest collision rate occurred at the St. Paul Avenue/East 15th Street intersection with 1.67 collisions per million entering vehicles.

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Table 1-9. Intersection Collision Rates (2009–2011) Intersection Collision Fatality Total ADT Rate Rate (2009–11) ID East-West North-South (MEV) (100MEV) 1 East 28th Street Portland Avenue 35,550 37 0.95 0.00 2 East 27th Street Portland Avenue 32,120 25 0.71 0.00 3 East 26th Street Portland Avenue 27,610 17 0.56 0.00 East 25th Street/ 4a Portland Avenue 27,480 12 0.40 0.00 Puyallup Avenue Puyallup Avenue/ 4b Portland Avenue 35,510 32 0.82 0.00 Eells Street 5 SR 509 EB Off-ramp Portland Avenue 17,700 0 0.00 0.00 6 SR 509 WB On-ramp Portland Avenue 16,710 2 0.11 0.00 7 St. Paul Avenue Portland Avenue 6,730 2 0.27 0.00 8 St. Paul Avenue East 15th Street 3,840 7 1.67 0.00 9 East 21st Street Pacific Avenue 32,850 13 0.36 0.00 10 SR 509 I-705 Ramps 54,250 1 0.02 0.00 11 East 26th Street I-705 Off-ramp 16,040 0 0.00 0.00 12 East 26th Street East D Street 12,320 10 0.74 0.00 13 East 25th Street East D Street 9,640 1 0.10 0.00 14 Puyallup Avenue East D Street 16,800 4 0.22 0.00 15 Dock Street East D Street 7,400 1 0.12 0.00 Total 164

1.4 No-Build Option Conditions for 2035 (Design Year) The No-Build Option analysis represents the operating conditions without the construction of the Recommended Configuration. The No-Build Option condition for 2035 provides a comparison for the Recommended Configuration in the design year. The No-Build Option condition assumes additional improvements to freeways, interchanges, arterials, or ramps within the study area other than those identified in local and regional planning documents, including the SR 167 interchange and extension. The complete list of planned transportation projects for 2035 is found in Table 1-1 and Table 1-2.

1.4.1 Transportation Demand To provide accurate forecasts, a detailed travel demand analysis was performed using land use forecasts and the regional travel demand model developed by the PSRC along with land use data from the City. Traffic volumes in the project area are expected to increase in 2035 because of increased trade activities at the Port and expanded residential and employment opportunities within the City as well as regional growth in population and employment throughout the Puget Sound area. Citywide, employment is expected to increase by 66 percent, or 74,600 jobs, while the number of households will increase by 74 percent, or 55,700 housing units. Within the area of the Port, employment is expected to grow by nearly 8,400 jobs. Appendix A-4: Land Use Technical Memorandum includes additional information about land use assumptions.

Truck volumes were forecast using a separate methodology; details are discussed in Appendix A-2. Under the No-Build Option, there would be fewer truck trips within the

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study area than under the Recommended Configuration. This is because the improved connectivity to the BNSF rail yard caused by the construction of the D Street ramps would attract additional truck traffic.

Between 2012 and 2035, PM peak hour traffic volumes on study area streets are expected to increase by about 26 percent, for an annual growth rate of 1.0 percent. Volumes on the major freeways serving the area (e.g., I-5, I-705, and SR 509) are forecasted to increase at a slower rate (0.7 percent annually or 18 percent total) because of the capacity constraints that exist on these regional facilities. While freeway growth rates were higher from 1990 through the mid-2000s, in more recent years, growth has been relatively flat.

1.4.2 Roadway Linkages and Access Multiple Port area and local access projects (listed in Table 1-1) would be in place by 2035, providing more direct routes into and out of the Tideflats area and improved circulation between the Port and Downtown Tacoma. Additionally, SR 509 would become a more attractive route for commuters and Dome-event travelers with the opening of the SR 167 extension.

Under the No-Build Option, emergency access would not be enhanced since there would be no redundant routes into and out of the study area. With arterial volumes expected to increase by 26 percent over existing volumes, emergency response times would likely increase due to congestion.

1.4.3 Traffic Operations Traffic conditions were analyzed for the 2035 AM and PM peak hours for freeway and major intersections.

Freeway Operations For the freeway mainline, the basic, merge and diverge, and weaving segments were analyzed for the 2035 No-Build Option conditions. Table 1-10 shows the 2035 No-Build Option freeway LOS and density for all segments within the study area in comparison with existing (2012) conditions.

In the AM peak hour, study freeway segment density would increase slightly compared to 2012 existing conditions, and all segments would operate at LOS C or better.

During the PM peak hour, 13 of 14 segments would operate at LOS D or better. The southbound SR 509 segment between the Portland Avenue on-ramp and the I-705 interchange would degrade from LOS C to E. This increase in density would be attributable to increased delay at the downstream I-705 SPUI intersection. Increases in traffic volumes and changes in optimized intersection signal timing would allocate less green time to the southbound left-turn movement, causing queues to spill out of the turn pocket onto the upstream basic freeway segment. The PM peak hour maximum queues would increase from 425 feet in 2012 to 875 feet in 2035. Because the intersection southbound left-turn pocket is approximately 400 feet long, queues would likely spill

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back into the mainline during the PM peak hour. These queues would not impact traffic operations at the Portland Avenue ramps.

One other freeway segment should be noted. On southbound I-705, the SR 509 on-ramp to the I-5 off-ramp weaving segment (ID #8) was calculated as LOS B during the PM peak hour. While this segment often operates at a good LOS, field observations confirmed that variable traffic conditions along I-5 occasionally can create backups extending onto I-705. In some extreme traffic congestion conditions on I-5, queues on southbound I-705 could extend to the SR 509 ramps.

Table 1-10. Freeway LOS 2035 No-Build Option Comparison With 2012 Existing 2035 No-Build 2012 Existing Option Density/LOS ID* Location Type Density/LOS AM PM AM PM I-705 Northbound 1 I-5 On-ramp to SR 509 Off-ramp Weave 14/B 19/B 16/B 21/C 2 15th Street/A Street Off-ramp Diverge 11/B 17/B 11/B 17/B 3 SR 509 On-ramp to Schuster Parkway Basic 12/B 21/C 16/B 22/C I-705 Southbound 4 9th Street On-ramp Merge 16/B 25/C 21/C 27/C 5 9th Street On-ramp to 13th Street On-ramp Basic 17/B 25/C 22/C 29/D 6 13th Street On-ramp to SR 509 Off-ramp Weave 16/B 21/C 20/B 24/C 7 SR 509 Off-ramp to On-ramp Basic 17/B 15/B 16/B 19/C 8 SR 509 On-ramp to I-5 Off-ramp Weave 16/B 16/B 15/B 18/B SR 509 Northbound 9 I-705 Off-Ramp to Portland Avenue Off-ramp Basic 15/B 20/C 20/C 22/C 10 Portland Avenue Off-ramp Diverge 15/B 20/B 11/B 22/C 11 Portland Avenue Off-ramp to Port of Tacoma Road Basic 12/B 17/B 17/B 20/C SR 509 Southbound 12 Port of Tacoma Road to Portland Avenue On-ramp Basic 12/B 17/B 18/B 22/C 13 Portland Avenue On-ramp Merge 13/B 19/B 19/B 27/C 14 Portland Avenue On-ramp to I-705 On-Ramp Basic 14/B 21/C 21/C 36/E *Refer to Figure 1-2 Note: Average volumes based on 10 VISSIM runs. The average density in vehicles per lane-mile for the study segment is reported. Density measured in passenger cars/mile/lane. Bold indicates that LOS does not meet current City or WSDOT standards. Source: Fehr & Peers, 2012.

Intersection Operations The operational analysis of the 15 intersections within the study area considers the system improvements listed in Table 1-1 and Table 1-2 for the 2035 No-Build Option analysis. The traffic volumes, lane configurations, and LOS for the AM and PM peak hours under 2035 No-Build Option conditions are presented in Figure 1-5. Table 1-11 and Table 1-12 summarize the LOS operation and calculated delay for the study intersections during AM and PM peak hours, as forecasted in the 2035 No-Build analysis.

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The lane configurations at the Portland Avenue/Puyallup Avenue/Eells Street and East D Street/Puyallup Avenue intersections would be subject to redesign as part of the Puyallup Avenue road diet project. However, because the specific design of the road diet project has not yet been determined, no changes to the intersection configurations were assumed for the analysis. Independent of the road diet project, the analysis included the addition of a second westbound left-turn pocket to the Portland Avenue/Puyallup Avenue/Eells Street intersection as part of the Puyallup Avenue Bridge replacement. The 2035 No-Build Option also assumes the signalization of three ramp terminal intersections: the Portland Avenue/SR 509 northbound off-ramp, the Portland Avenue/SR 509 southbound on-ramp, and the East 26th Street/I-705 off-ramp.

There would be congestion at certain intersections during the 2035 peak periods under the No-Build Option conditions. During the AM peak hour, the following intersections – all side-street stop-controlled – would operate at LOS F: • Portland Avenue/East 26th Street – the eastbound left-turn volume would increase, exacerbating the existing heavy delay. • Portland Avenue/St. Paul Avenue and 15th Street/Portland Avenue – most cross- Port traffic would be along through Portland Avenue or St. Paul Avenue, increasing delays for left-turning vehicles.

The remaining 12 intersections would operate at LOS D or better. Several intersections would improve compared to 2012 conditions due to the addition of traffic signals and the assumption that existing signal timing would be optimized. The reopening of the Murray Morgan Bridge also shifts some traffic away from the study area.

During the PM peak hour, six of the 15 intersections would operate at LOS E or F, including four unsignalized intersections along the Portland Avenue/St. Paul Avenue corridor: 1. Portland Avenue/East 26th Street 2. Portland Avenue/East 25th Street/Puyallup Avenue Ramps 3. Portland Avenue/St. Paul Avenue 4. 15th Street/St. Paul Avenue.

Other intersections operating below the city’s LOS standard would be Pacific Avenue/21st Street and East D Street/Puyallup Avenue.

The remaining nine study intersections would operate at LOS D or better. As with the AM peak hour, the LOS at some intersections would improve compared to 2012 conditions.

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Table 1-11. Intersection LOS 2035 No-Build Option Comparison with 2012 Existing – AM Peak Hour Conditions Traffic Control 2012 Existing 2035 No-Build Option Highest Highest Intersection Delay/ Delay/ 2012 2035 Delay Delay LOS LOS Movement* Movement* 1 Portland Avenue/East 28th Street Signal Signal 21/C - 31/C - 2 Portland Avenue/East 27th Street Signal Signal 20/B - 24/C - 3 Portland Avenue/East 26th Street SSSC SSSC 48/E EBL 190/F EBL Portland Avenue/East 25th 4a SSSC SSSC 14/B EBL 32/D EBL Street/Puyallup Avenue Portland Avenue/Puyallup 4b Signal Signal 16/B - 17/B - Avenue/Eells Street Portland Avenue/SR 509 NB Off- 5 SSSC Signal 29/D EBL 8/A - ramp Portland Avenue/SR 509 SB On- 6 Unct. Signal 4/A NBL 1/A - ramp 7 Portland Avenue/St. Paul Avenue SSSC SSSC 16/C EBR 55/F EBL 8 East 15th Street/St. Paul Avenue SSSC SSSC 12/B NBL 94/F NBL 9 Pacific Avenue/East 21st Street Signal Signal 25/C - 26/C - 10 SR 509/I-705 Ramps Signal Signal 21/C - 26/C - 11 East 26th Street/I-705 Off-ramp SSSC Signal 9/A NBL 9/A - 12 East D Street/East 26th Street Signal Signal 7/A - 22/C - 13 East D Street/East 25th Street Signal Signal 9/A - 12/B - 14 East D Street/Puyallup Avenue Signal Signal 18/B - 23/C - East D Street/Dock Street 15 Signal Signal 21/C - 4/A - Extension 16 SR 509 Ramps/East D Street SSSC SSSC Does not exist in No-Build Option Note: Bold indicates that LOS does not meet City or WSDOT standards. SSSC = Side-Street Stop-Controlled. Unct. = Uncontrolled. EBL = eastbound left. EBR = eastbound right. NBL = northbound left. SR 509 Ramps/East D Street intersection does not exist under 2012 existing conditions. *Determines delay at unsignalized intersections. Source: Fehr & Peers, 2012.

Table 1-12. Intersection LOS 2035 No-Build Option Comparison with 2012 Existing – PM Peak Hour Conditions Traffic Control 2012 Existing 2035 No-Build Option Highest Highest Intersection Delay/ Delay/ 2012 2035 Delay Delay LOS LOS Movement* Movement* Portland Avenue/E 28th 1 Signal Signal 24/C - 29/C - Street Portland Avenue/E 27th 2 Signal Signal 27/C - 39/D - Street Portland Avenue/E 26th 3 SSSC SSSC >250/F EBL >250/F EBL Street Portland Avenue/E 25th 4a SSSC SSSC 19/C EBL >250/F EBL Street/Puyallup Avenue Portland Avenue/Puyallup 4b Signal Signal 27/C - 26/C - Avenue/Eells Street

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Traffic Control 2012 Existing 2035 No-Build Option Highest Highest Intersection Delay/ Delay/ 2012 2035 Delay Delay LOS LOS Movement* Movement* Portland Avenue/SR 509 NB 5 SSSC Signal 16/C EBL 6/A - Off-ramp Portland Avenue/SR 509 SB 6 Unct. Signal 20/C NBL 2/A - On-ramp Portland Avenue/St. Paul 7 SSSC SSSC 13/B EBL 60/F EBR Avenue East 15th Street/St. Paul 8 SSSC SSSC 11/B NBL 43/E NBL Avenue Pacific Avenue/East 21st 9 Signal Signal 94/F - 86/F - Street 10 SR 509/I-705 Ramps Signal Signal 38/D - 44/D - East 26th Street/I-705 Off- 11 SSSC Signal 18/C NBL 9/A - ramp East D Street/East 26th 12 Signal Signal 10/A - 42/D - Street East D Street/East 25th 13 Signal Signal 9/A - 17/B - Street East D Street/Puyallup 14 Signal Signal 25/C - 56/E - Avenue East D Street/Dock Street 15 Signal Signal 24/C - 5/A - Extension 16 SR 509 Ramps/East D Street SSSC SSSC Does not exist in No-Build Option Note: Bold indicates that LOS does not meet City or WSDOT standards. SSSC = Side-Street Stop-Controlled. Unct. = Uncontrolled. EBL = eastbound left. EBR = eastbound right. NBL = northbound left. SR 509 Ramps/East D Street intersection does not exist under 2012 existing conditions. *Determines delay at unsignalized intersections. Source: Fehr & Peers, 2012.

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Figure 1-5. 2035 No-Build Option intersection turning movements and level of service – page 1

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Figure 1-5. No-Build Option intersection turning movements and level of service – page 2

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1.4.4 Safety Traffic volumes will increase by 2035 regardless of whether the Recommended Configuration or the No-Build Option is in place. Increased traffic volumes will likely result in an increased number of collisions, although the collision rate may stay the same. The following tables compare the ADT in 2012 and 2035 under the No-Build Option. The growth is applied to the existing collision rates to forecast the number of collisions in 2035.

Table 1-13 and Table 1-14 show the collision forecast for freeway mainline segments, and ramps. No fatalities occurred on the mainline study segments during the analysis period so no fatal collisions are projected in 2035. The projected totals are rounded to the nearest tenth.

Table 1-13. Projected Number of Collisions on Mainline Freeway for 2035 No-Build Option Annual Projected Collision 2012 Average of 2035 Total Mainline Segment Rate ADT Collisions ADT Collisions (MVM) (2008–11) 2035 SR 509 Northbound I-705 NB On-ramp to E Portland Avenue Off-ramp 21,460 2.0 0.32 25,140 2.3 E Portland Avenue Off-ramp to S Frontage Road 18,430 1.0 0.15 21,830 1.2 Off-ramp Sub Total 3.0 3.5 SR 509 Southbound N Frontage Road On-ramp to E Portland Avenue 18,960 3.3 0.42 23,950 4.2 On-ramp E Portland Avenue On-ramp to I-705 NB Off-ramp 23,220 1.7 0.26 26,880 1.9 Sub Total 5.0 6.1 I-705 Northbound I-5 On-ramp to SR 509 Off-ramp 26,080 1.3 0.70 29,110 1.5 SR 509 Off-ramp to SR 509 On-ramp 20,020 0.7 0.37 22,120 0.7 SR 509 On-ramp to Schuster Parkway 26,780 3.3 0.52 29,140 3.6 Sub Total 5.3 5.8 I-705 Southbound 9th Street On-ramp to 13th Street On-ramp 29,980 1.7 0.51 35,720 2.0 13th Street On-ramp to SR 509 Off-ramp 36,790 2.7 0.57 45,180 3.3 SR 509 Off-ramp to SR 509 On-ramp 29,930 2.3 0.57 37,430 2.9 SR 509 On-ramp to I-5 Off-ramp 38,510 6.0 1.19 44,580 7.0 Sub Total 12.7 15.2 Total 26.0 30.6

Freeway Ramps Freeway ramp collisions would grow consistent with the growth in ADT by 2035. Collisions would be highest at the ramps along I-705.

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Table 1-14. Projected Number of Collisions on Freeway Ramps for 2035 No-Build Option Annual Average Collision 2012 2035 Projected Total of Collisions Rate ADT ADT Collisions 2035 (2008–11) (MVM) SR 509 Northbound E Portland Avenue Off-ramp 3,030 0.3 0.94 3,310 0.4 SR 509 Southbound E Portland Avenue On-ramp 4,260 0.0 0.00 2,770 0.0 I-705 Northbound SR 509/E 21st St off-ramp 6,060 2.0 4.31 7,670 2.5 SR 509/E 21st St on-ramp 11,530 0.7 0.59 13,120 0.8 15th Street Off-ramp 1,830 3.7 11.44 2,280 4.6 A Street Off-ramp 2,940 0.0 0.00 3,860 0.0 Subtotal 6.4 7.9 I-705 Southbound 9th Street On-ramp 9,860 7.0 11.44 11,470 8.1 13th Street/A Street on-ramp 6,810 1.3 4.47 12,100 2.4 SR 509/E 21st St off-ramp 6,860 1.3 2.13 8,170 1.6 SR 509/E 21st St on-ramp 8,580 3.3 4.84 8,940 3.5 Subtotal 12.9 15.6 Total 19.6 23.9

Intersections No fatalities occurred at any study intersection over the 3-year analysis period. Therefore, no fatalities are forecast to occur in 2035 under the No-Build Option. The number of collisions is assumed to increase according to the growth in volume at each intersection, while the overall collision rate remains the same as current conditions. Table 1-15 summarizes the collision rates and number of projected collisions at each study intersection. Overall, approximately 20 more collisions are expected at study intersections under the 2035 No-Build Option.

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Table 1-15. Projected Number of Collisions at Intersections for the 2035 No-Build Option Annual Projected Intersection Collision Average of 2035 Total 2012 ADT Rate Collisions ADT Collisions ID East-West North-South (MEV) (2009–11) 2035 1 E 28th Street Portland Avenue 35,550 12.3 0.95 41,730 14.5 2 E 27th Street Portland Avenue 32,120 8.3 0.71 39,320 10.2 3 E 26th Street Portland Avenue 27,610 5.7 0.56 32,340 6.6 E 25th Street/ 4a Portland Avenue 27,480 4.0 0.40 33,090 4.8 Puyallup Avenue Puyallup Avenue/ 4b Portland Avenue 35,510 10.7 0.82 49,590 14.9 Eells Street SR 509 EB Off- 5 Portland Avenue 17,700 0.0 0.00 21,820 0.0 ramp SR 509 WB On- 6 Portland Avenue 16,710 0.7 0.11 21,030 0.8 ramp 7 St. Paul Avenue Portland Avenue 6,730 0.7 0.27 13,200 1.3 8 St. Paul Avenue E 15th Street 3,840 2.3 1.67 10,090 6.1 9 E 21st Street Pacific Avenue 32,850 4.3 0.36 43,600 5.8 10 SR 509 I-705 Ramps 54,250 0.3 0.02 60,870 0.4 11 E 26th Street I-705 Off-ramp 16,040 0.0 0.00 23,770 0.0 12 E 26th Street E D Street 12,320 3.3 0.74 19,920 5.4 13 E 25th Street E D Street 9,640 0.3 0.10 15,460 0.5 14 Puyallup Avenue E D Street 16,800 1.3 0.22 29,250 2.3 15 Dock Street E D Street 7,400 0.3 0.12 10,390 0.5 Total 54.7 74.1

1.5 No-Build Option Conditions for 2015 (Year of Opening) The No-Build analysis represents the operating conditions without the construction of the Recommended Configuration. The No-Build Option conditions for 2015 provide a comparison for the Recommended Configuration in the opening year. The No-Build Condition assumes no additional improvements to freeways, interchanges, arterials, or ramps within the study area other than those identified in local and regional planning documents. The complete list of assumed improvements is found in Table 1-1 and Table 1-2.

1.5.1 Transportation Demand Transportation demand for the 2015 No-Build condition was calculated by interpolating between the existing conditions and the 2035 No-Build forecasts described in the previous section. This interpolation was checked against a 2012 demand forecast adjusted to include key Port-area infrastructure improvements expected to be finished by 2015 (such as the reconstructed Murray Morgan Bridge). This check ensured that any changes in travel pattern based on infrastructure additions were reflected in the 2015 No-Build interpolation.

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1.5.2 Roadway Linkages and Access Few of the planned Port-area and local access projects (listed in Table 1-1) would be in place by 2015. However, the reopening of the Murray Morgan Bridge would reroute some truck traffic and trips to/from Downtown Tacoma, affecting traffic flows along Portland Avenue and other Port-connecting roadways. The reopening of the bridge will also improve emergency vehicle access within the study area.

1.5.3 Traffic Operations Traffic conditions were analyzed for the 2015 AM and PM peak hours for study freeway segments and major intersections.

Freeway Operations For the freeway mainline, the basic, merge and diverge, and weaving segments were analyzed for the 2015 No-Build Option conditions. In the AM peak hour, freeway conditions would be similar to 2012 existing conditions, and all segments would operate at LOS C or better. PM peak densities would change very little and remain at LOS C or better. Delays and queues at the I-705/SR 509 interchange would not impact the freeway operations on southbound SR 509.

Table 1-16 summarizes the 2015 No-Build Option freeway LOS and density for all segments within the study area.

Table 1-16. 2015 No-Build Option Comparison with 2012 Existing – Freeway LOS 2012 Existing 2015 No-Build Option ID* Location Type Density/LOS Density/LOS AM PM AM PM I-705 Northbound 1 I-5 On-ramp to SR 509 Off-ramp Weave 14/B 19/B 18/B 18/B 2 15th Street/A Street Off-ramp Diverge 11/B 17/B 16/B 16/B 3 SR 509 On-ramp to Schuster Parkway Basic 12/B 21/C 21/C 21/C I-705 Southbound 4 9th Street On-ramp Merge 16/B 25/C 26/C 26/C 5 9th Street On-ramp to 13th Street On-ramp Basic 17/B 25/C 25/C 25/C 6 13th Street On-ramp to SR 509 Off-ramp Weave 16/B 21/C 21/C 21/C 7 SR 509 Off-ramp to On-ramp Basic 17/B 15/B 16/B 16/B 8 SR 509 On-ramp to I-5 Off-ramp Weave 16/B 16/B 16/B 16/B SR 509 Northbound 9 I-705 Off-Ramp to Portland Avenue Off-ramp Basic 15/B 20/C 20/C 20/C 10 Portland Avenue Off-ramp Diverge 15/B 20/B 20/B 20/B 11 Portland Avenue Off-ramp to Port of Tacoma Road Basic 12/B 17/B 17/B 17/B SR 509 Southbound 12 Port of Tacoma Road to Portland Avenue On-ramp Basic 12/B 17/B 18/B 18/B 13 Portland Avenue On-ramp Merge 13/B 19/B 20/B 20/B 14 Portland Avenue On-ramp to I-705 On-Ramp Basic 14/B 21/C 22/C 22/C *Refer to Figure 1-2 Note: Average volumes based on 10 VISSIM runs. The average density in vehicles per lane-mile for the study segment is reported. Density measured in passenger cars/mile/lane. Bold indicates that LOS does not meet City or WSDOT standards. Source: Fehr & Peers, 2012.

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Intersection Operations The operational analysis of the 15 major intersections within the study area considered the transportation projects listed in Table 1-1 for the 2015 No-Build Option analysis. Additionally, these conditions assumed the signalization of three ramp terminal intersections: the Portland Avenue/SR 509 northbound off-ramp, the Portland Avenue/SR 509 southbound on-ramp, and the East 26th Street/I-705 off-ramp.

During the AM peak hour, only the Portland Avenue/East 26th Street intersection would operate at LOS F; that intersection operates at LOS E under existing conditions. The LOS problem is caused by delays to eastbound left-turns at the unsignalized intersection. During the PM peak hour, two intersections would operate at LOS E or F. The Pacific Avenue/21st Street intersection would decrease by 17 seconds of delay compared to existing conditions and improve from LOS F to E. Despite the increase in volume at all approaches of this intersection, optimized signal timing would result in improved operations compared to existing conditions. All other study intersections would operate at LOS D or better in both the AM and PM peak hours.

Table 1-17 and Table 1-18 summarize the LOS operations and calculated delay at study intersections during the AM and PM peak hours, as observed in the 2015 No-Build analysis. Figure 1-6 presents intersection LOS, geometry, and volume for the AM and PM peak hours.

Table 1-17. Intersection LOS 2015 No-Build Option Comparison with 2012 Existing – AM Peak Hour Conditions Traffic Control 2012 Existing 2015 No-Build Option Highest Highest Intersection Delay/ Delay/ 2012 2035 Delay Delay LOS LOS Movement* Movement* 1 Portland Avenue /E 28th Street Signal Signal 21/C - 21/C - 2 Portland Avenue /E 27th Street Signal Signal 20/B - 22/C - 3 Portland Avenue /E 26th Street SSSC SSSC 48/E EBL 60/F EBL Portland Avenue /E 25th 4a SSSC SSSC 14/B EBL 15/C EBL Street/Puyallup Avenue Portland Avenue /Puyallup 4b Signal Signal 16/B - 16/B - Avenue/Eells Street Portland Avenue /SR 509 NB Off- 5 SSSC Signal 29/D EBL 10/A - ramp Portland Avenue /SR 509 SB On- 6 Unct. Signal 4/A NBL 1/A - ramp 7 Portland Avenue /St. Paul Avenue SSSC SSSC 16/C EBR 17/C EBL 8 E 15th Street/St. Paul Avenue SSSC SSSC 12/B NBL 14/B NBL 9 Pacific Avenue/E 21st Street Signal Signal 25/C - 27/C - 10 SR 509/I-705 Ramps Signal Signal 21/C - 21/C - 11 E 26th Street/I-705 Off-ramp SSSC Signal 9/A NBL 8/A - 12 E D Street/E 26th Street Signal Signal 7/A - 19/B - 13 E D Street/E 25th Street Signal Signal 9/A - 7/A -

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Traffic Control 2012 Existing 2015 No-Build Option Highest Highest Intersection Delay/ Delay/ 2012 2035 Delay Delay LOS LOS Movement* Movement* 14 East D Street/Puyallup Avenue Signal Signal 18/B - 12/B - 15 East D Street/Dock Street Extension Signal Signal 21/C - 4/A - 16 SR 509 Ramps/East D Street SSSC SSSC - - - - Note: Bold indicates that LOS does not meet City or WSDOT standards. SSSC = Side-Street Stop-Controlled. Unct. = Uncontrolled. EBL = eastbound left. EBR = eastbound right. NBL = northbound left. SR 509 Ramps/East D Street intersection does not exist under 2012 existing conditions. *Determines delay at unsignalized intersections. Source: Fehr & Peers, 2012.

Table 1-18. Intersection LOS 2015 No-Build Option Comparison with 2012 Existing – PM Peak Hour Conditions Traffic Control 2012 Existing 2015 No-Build Option Highest Highest Intersection Delay/ Delay/ 2012 2035 Delay Delay LOS LOS Movement* Movement* 1 Portland Avenue/East 28th Street Signal Signal 24/C - 26/C - 2 Portland Avenue/E 27th Street Signal Signal 27/C - 25/C - 3 Portland Avenue/E 26th Street SSSC SSSC >250/F EBL >250/F EBL Portland Avenue/E 25th 4a SSSC SSSC 19/C EBL 30/D EBL Street/Puyallup Avenue Portland Avenue/Puyallup 4b Signal Signal 27/C - 25/C - Avenue/Eells Street 5 Portland Avenue/SR 509 NB Off-ramp SSSC Signal 16/C EBL 5/A - 6 Portland Avenue/SR 509 SB On-ramp Unct. Signal 20/C NBL 2/A - 7 Portland Avenue/St. Paul Avenue SSSC SSSC 13/B EBL 14/B EBL 8 E 15th Street/St. Paul Avenue SSSC SSSC 11/B NBL 12/B NBL 9 Pacific Avenue/E 21st Street Signal Signal 94/F - 77/E - 10 SR 509/I-705 Ramps Signal Signal 38/D - 27/C - 11 E 26th Street/I-705 Off-ramp SSSC Signal 18/C NBL 8/A - 12 E D Street/E 26th Street Signal Signal 10/A - 25/C - 13 E D Street/E 25th Street Signal Signal 9/A - 8/A - 14 E D Street/Puyallup Avenue Signal Signal 25/C - 19/B - 15 E D Street/Dock Street Extension Signal Signal 24/C - 4/A - 16 SR 509 Ramps/E D Street SSSC SSSC - - - - Note: Bold indicates that LOS does not meet City or WSDOT standards. SSSC = Side-Street Stop-Controlled. Unct. = Uncontrolled. EBL = eastbound left. EBR = eastbound right. NBL = northbound left. SR 509 Ramps/E D Street intersection does not exist under 2012 existing conditions. *Determines delay at unsignalized intersections. Source: Fehr & Peers, 2012.

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Figure 1-6. No-Build Option intersection turning movements and level of service – page 1

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Figure 1-6. No-Build Option intersection turning movements and level of service – page 2

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1.5.4 Safety Increases in traffic volume can result in a higher incidence of collisions on freeways and intersections within the study area. Even if collision rates remain the same, the total number of annual collisions would likely increase due to the growth in traffic volumes. Traffic volumes under the 2015 No-Build Option are expected to increase by roughly 2.2 percent on freeways and 4.0 percent on streets over 2012 volumes. These growth factors were applied to the average number of annual collisions that occurred between 2009 and 2011 on study facilities (100 in total). This suggests that there would be approximately 26 collisions on the mainline freeway, 20 collisions on freeway ramps, and 57 collisions at study intersections, for a total of 103 collisions on study facilities in 2015. This is a three percent increase in the total number of collisions over the existing conditions.

1.6 Transportation Demand Management Strategies In addressing the project need, a broad range of transportation demand management (TDM) solutions was investigated. TDM measures include a variety of programs designed to lower single automobile travel such as alternative work schedules, restrictions on parking supply, transit and ridesharing subsidies, and targeted marketing activities. The TEEM 2.0 (TDM Effectiveness Estimation Methodology) model was used to quantify the potential for TDM and land use strategies to reduce travel demand within the study area.

The TEEM program can model the effectiveness of up to 20 TDM strategies either individually and in combination. The strategies within TEEM are: • Vanpooling • Transportation management associations • Alternative mode subsidy • Individualized marketing strategies • Flexpass/residential pass • Intensive marketing programs • Vanshare • Improved bicycle access/facilities • Guaranteed ride home • Improved pedestrian access/facilities • Restricted parking supply • Shopping trips • Parking pricing at • Special events employment sites • Telecommuting • Infill and densification • Compressed work week • Increased mixed-use development • Commute Trip Reduction • Increased density near transit (CTR)-type programs for smaller employers

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The TEEM program was used to test two options focused on TDM strategies. Option One focused on increasing density near transit and increasing mixed-use development in the study area. This strategy would reduce vehicle trips by one to two percent. Option Two tested a combination of all strategies to assess a high-level of TDM measures. Results from this analysis found an overall 7.9 percent reduction in daily trips and a 4.0 percent reduction in PM peak hour trips within the study area. These changes are substantial but come at a high cost. Table 1-19 presents the results of TEEM analysis and the strategies assumed.

The results show that an intensive TDM program could reduce overall trip-making within the study area. However, implementing TDM strategies would not address the access and mobility purposes of the proposed project.

1.7 Conclusions Traffic demands within the study area will grow steadily over the next 20 years due to local and regional growth. Limited connections between the study area and the Port in particular will force much of growth onto I-5 and local streets, resulting in congested conditions. I-5 is heavily congested and will remain so into the future.

SR 509 has ample capacity for traffic growth, particularly in the section between Portland Avenue and I-705. SR 509 traffic operations are somewhat constrained by heavy congestion on Pacific Avenue, causing some backups between Pacific Avenue and the I-705/SR 509 interchange.

Currently, vehicles traveling between the Port and the Thea Foss/Dome area often backtrack through downtown Tacoma or use congested city streets such as Pacific Avenue and Puyallup Avenue. Queues on Puyallup Avenue at Portland Avenue limit accessibility to the study area. Additionally, current congestion and limited connectivity affect emergency vehicle access adversely..

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Table 1-19. TEEM Model TDM Analysis Results Before Option 1 Option 2 Measures Used to Evaluate Strategies Applying After Percent After Percent TDM Testing Change Testing Change Commute Drive Alone Mode Share Employees 50% 46% -7.9% 37% -25.2% Residents 47% 47% 0.0% 47% -0.6%

Automobile Mode Share for Non-Commute Trips Non-Commute 100% 100% 0.0% 100% 0.0%

Daily Vehicle Trips Employee Commute Trips 24,816 24,069 -3.0% 21,780 -12.2% Residents Commute Trips 14,113 14,113 0.0% 14,055 -0.4% Total Commute Trips 38,928 38,182 -1.9% 35,834 -7.9% Non-commute Trips 39,257 39,257 0.0% 39,257 0.0%

Daily Vehicle-Miles Traveled Employee Commute Trips 410,679 401,557 -2.2% 370,136 -9.9% Residents Commute Trips 223,796 223,796 0.0% 222,886 -0.4% Non-commute Trips 594,094 594,094 0.0% 594,094 0.0% Cost Per Daily VMT Reduced 1,228,569 1,219,447 $5 1,187,116 $647 Cost Per Daily VMT Reduced w/o IM $0 $647 PM Peak Period Trips1 From the Study Area 17,732 17,528 -1.1% 16,902 -4.7% To the Study Area 4,942 4,929 -0.3% 4,875 -1.4% Total Trips 22,674 22,457 -1.0% 21,776 -4.0% Cost Per PM Peak Trip Reduced 22,674 22,457 $221 21,776 $29,868 Cost Per PM Peak Trip Reduced w/o IM $0 $29,868

Total Cost: $47,734 $26,800,232

1) Includes HBW Attractions, HBO Attractions and HBW Productions

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Table 1-19. TEEM Model TDM Analysis Results (continued) Strategy Option 1 Option 2 Mode-Shift Support Strategies 1 Vanpooling No Yes 2 Alternative Mode Subsidy No Yes 3 FlexPass/Residential Pass No Yes 4 Vanshare No Yes 5 Guaranteed Ride Home (GRH) No Yes Parking Management Strategies 6 Restricted Parking Supply No Yes 7 Parking Pricing at Employment Sites No Yes Alternative Work Schedules Strategies 8 Telecommuting No Yes 9 Compressed Work Week (CWW) No Yes Programmatic and Policy Support 10 CTR-Type Program for Small Employers No Yes 11 Multi-Employer TMA No Yes 12a Individualized Marketing No Yes 12b Intensive Marketing No Yes Bicycle and Pedestrian Facilities 13 Increased Bicycle Access No Yes 14 Improved Pedestrian Access No Yes Non-Commute Trips 15 Shopping Trips No Yes 16 Special Events No No Land-Use Strategies & Transit Service Strategies 17 Increased Infill Develop/Densification Yes Yes 18 Increased Mixed-Use Development Yes Yes 19 Increased Density Near Transit Yes Yes

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2.0 POLICY POINT 2: REASONABLE ALTERNATIVES Describe the reasonable alternatives that have been evaluated.

2.1 Summary The City of Tacoma, along with a Technical Advisory Committee (TAC) comprising representatives of WSDOT, FHWA, the Port, and other agencies, developed multiple alternatives to provide access to the Tideflats and Thea Foss peninsula to and from SR 509 between Portland Avenue and East D Street.

The TAC evaluated and screened a total of 19 alternatives. The employed two-tiered screening process evaluated the alternatives’ performance in regards to geometrics, traffic operations, and effects to the environment and surrounding businesses. The evaluation identified Alternative 10 – The Eastbound Undercrossing – as the alternative that best accomplished the project’s connectivity goals while providing the least effects to the natural environment and surrounding businesses. The proposed action would construct a new half interchange to provide a southbound off-ramp from SR 509 to East D Street and a northbound on-ramp to SR 509 from East D Street via an SR 509 undercrossing.

2.2 Alternatives Developed In cooperation with WSDOT and FHWA, the project team evaluated 20 alternative configurations for the new interchange over a 4-month process. Figures 2-1 through 2-7 show the 19 build alternatives analyzed in the screening process. These are also described below. • Group 1: East D Street – alternatives 1 through 12 • Group 2: East 19th Street/Puyallup Avenue – alternatives 13 through 15 • Group 3: Portland Avenue – alternatives 17 through 19 • Group 4: TDM Strategies – see section 1.6

As discussed in section 1.6, the analysis showed that benefits from the TDM or limited construction alternatives were not substantial enough for them to be considered effective. Therefore, these were eliminated from further consideration.

The graphics on the following pages and the descriptions that follow them show the various alternatives that were developed and analyzed.

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Figure 2-1. Alternatives considered and evaluated for access point revision

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Figure 2-2. Alternatives considered and evaluated for access point revision

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Figure 2-3. Alternatives considered and evaluated for access point revision

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Figure 2-4. Alternatives considered and evaluated for access point revision

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Figure 2-5. Alternatives considered and evaluated for access point revision

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Figure 2-6. Alternatives considered and evaluated for access point revision

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Figure 2-7. Alternative considered and evaluated for access point revision

Alternative 1 – Half SPUI Slip Ramps Two previous studies; the East Thea Foss Transportation Study completed in 2008 and the Tideflats Area Transportation Study (TATS) prepared in 2010; identified transportation improvements offered by a half Single Point Urban Interchange (SPUI) on SR 509 at East D Street. Alternative 1 reflects the previously identified improvements. This alternative was considered the “baseline” alternative against which the other options were measured through the screening process. Alternative 1 would add an off- and on- ramps to SR 509 at East D Street and a new signalized intersection to control movements at the ramps.

Alternative 2 – Half SPUI plus Collector Distributor Similar to Alternative 1, this Half SPUI alternative also proposed the construction of a collector-distributor (CD) ramp along westbound SR 509. The purpose of adding the CD ramp was to increase the weave move between the Portland Avenue on-ramp and the East D Street off-ramp of the SR 509 mainline.

Alternative 3 – Half Diamond Alternative 3 has both on- and off-ramps from SR 509 to East D Street with two new signalized intersections on East D Street.

Alternative 4 – Roundabout (Single) This alternative has one roundabout along East D Street under SR 509, which the on- and off- ramps at SR 509 would adjoin.

Alternative 5 – Roundabout (Double) Alternative 5 has two roundabouts, one at each ramp along East D Street.

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Alternative 6a – Roundabout at East D Street and Dock Street This alternative has a flyover ramp from westbound SR 509 across the BNSF rail yard terminating at a roundabout at East D Street and Dock Street. Similarly, a ramp from the roundabout crossing over the BNSF rail yard would connect to eastbound SR 509.

Alternative 7 – Teardrop Alternative 7 is similar to Alternative 5, with the exception that rather than the traditional circular roundabout, teardrop-shaped configuration would be placed along East D Street at both on- and off-ramp locations.

Alternative 8 – BNSF Slip Ramp Connector Alternative 8 would provide an off-ramp from westbound SR 509 to East D Street and an on-ramp from southbound East D Street, a separate northbound East D Street on-ramp, an on-ramp from the BNSF rail yard, and on-ramp traffic from East D Street would merge prior to entering northbound SR 509.

Alternative 9 – Flyover Alternative 9 has a flyover ramp from westbound SR 509 to southbound East D Street, an off-ramp to northbound East D Street, and an on-ramp from East D Street to eastbound SR 509.

Alternative 10 – Northbound Undercrossing The configuration of this alternative has an off-ramp from southbound SR 509 terminating at East D Street. The on-ramp for northbound SR 509 begins at the same signalized intersection, and then crosses under to the south side of SR 509, which would then merge into northbound SR 509.

Alternative 11 – Half Cloverleaf Alternative 11 is the traditional half-cloverleaf. The westbound off-ramp would terminate at East D Street and the on-ramp for westbound would be a loop ramp from northbound East D Street to westbound SR 509. This option would provide a loop off- ramp from eastbound SR 509 to northbound East D Street, and an on-ramp from East D Street to eastbound SR 509.

Alternative 12 – Half Loop-Off The configuration for this alternative has an off-ramp from westbound SR 509 which splits to reach northbound East D Street and reaches southbound East D Street using a loop ramp on the west side of East D Street.

Alternative 13a – Roundabout with Access to East 19th Street and Puyallup Avenue Alternative 13a provides a roundabout between the Portland Avenue interchange and East D Street along SR 509. This configuration would provide ramps to East 19th Street on the north side of SR 509 and to Puyallup Avenue on the south side.

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Alternative 13b – Ramps at East 19th Street and Puyallup Avenue Alternative 13b is similar to 13a, as it provides access to East 19th and Puyallup Avenue but does not have a roundabout. Rather, it has right off-/right-on ramps from and to SR 509. The location of these ramps is between the Portland Avenue interchange and East D Street.

Alternative 14 – Slip Ramps and Roundabouts This alternative will provide an eastbound off-ramp from SR 509, an eastbound on-ramp to SR 509, and access from the Dock Street/East D Street intersection to a roundabout at the BNSF rail yard, which then connects to another roundabout at Puyallup Avenue.

Alternative 15 – New Connection to East 19th Street Alternative 15 improves the East 19th Street corridor connecting Lincoln Avenue to East D Street.

Alternative 17 – Portland Avenue Interchange Currently, there is only an eastbound off-ramp and westbound on-ramp at Portland Avenue from SR 509. Alternative 17 completes this interchange by providing an eastbound on-ramp and westbound off-ramp to/from Portland Avenue.

Alternative 18 – Frontage Roads to Portland Avenue Interchange Similar to Alternative 17, this alternative has a westbound off-ramp from SR 509 to Portland Avenue and an eastbound on-ramp to SR 509 from Portland Avenue. In addition, this alternative adds frontage roads in the east and west directions along SR 509 connecting into the existing on-/off-ramps at Portland Avenue and SR 509 and terminating at East D Street.

Alternative 19 – Off-Ramp at East D Street, On-Ramp at Portland Avenue Alternative 19 adds an on-ramp from Portland Avenue to eastbound SR 509 and an off- ramp from westbound SR 509 to East D Street.

2.3 Alternative Screening A two-tiered screening process analyzed the benefits and viability of each alternative. Screening criteria were developed to address issues raised in the project’s purpose and need statement and to measure the ability of the alternatives to successfully navigate the process of environmental documentation. The Level I screening identified and eliminated the fatally flawed alternatives. This process evaluated each alternative and measured its viability by asking the following three questions: • Does the alternative meet the project’s purpose and needs? • Is the alternative likely to receive key permits and approvals (e.g., IJR, NEPA)? • Is the cost of the project feasible and consistent with costs for similar projects in the region?

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The second level of screening – Level II – evaluated the remaining alternatives on geometrics and traffic analysis as well as the physical and economic elements of the environment through the use of WSDOT’s Value Matrix Analysis process. The Value Matrix Analysis is a multi-level performance measurement tool often used by WSDOT for value engineering studies and to rank the performance attributes of multiple alternatives. Table 2-1 below lists all the alternatives considered and their performance through the screening process. Table 2-1 Alternatives Considered and Results of Screening Alternative Screening Level No. Description Reason for Rejection Name Rejected 1 1 Half SPUI Slip Ramps Level II Low scoring in WSDOT’s Value Matrix 2 2 Half SPUI plus Collector Distributor Level I Doesn’t benefit weaving distance 3 3 Half Diamond Level II Low scoring in WSDOT’s Value Matrix 4 4 Roundabout (Single) Level I Low design speeds, increases congestion along D Street 5 5 Roundabout (Double) Level I Combined with 7, low design speeds, increases congestion along D Street 6 6 Roundabouts (Double) – Dock Street 7 6a Signal/Roundabout at Dock Street Level II Low scoring in WSDOT’s Value Matrix 8 7 Teardrop Level I Low design speeds, increases congestion along D Street 9 8 BNSF Slip Ramp Connector Level II Low scoring in WSDOT’s Value Matrix 10 9 Flyover Level I Grades too steep, conflict with cable stay bridge 11 10 Eastbound Undercrossing Recommended Configuration 12 11 Half Cloverleaf Level I Movements not consistent with project goals 13 12 Half Loop – Off Level I Large impacts to right of way 14 13a Roundabout with Access to Level I High cost East 19th St. and Puyallup Ave. 15 13b Ramps at 19th St. and Puyallup Level I Geometrically flawed, high Ave. grades 16 14 Slip Ramps and Roundabout Level I Adds many restrictions to the BNSF development 17 17 Portland Ave. Interchange Level I Improvements proposed included in 18 & 19 18 18 Frontage Roads to Portland Ave. Level II Low scoring in WSDOT’s Interchange Value Matrix 19 19 Off at D Street/On at Portland Ave. Level II Low scoring in WSDOT’s Value Matrix

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The Level II screening processes narrowed the alternatives to three: alternatives 1, 3, and 10, with alternative 10 receiving 40 percent more performance points than alternatives 1 and 3. However, the pros and cons of the three remaining options were presented to the Stakeholders’ Committee on 25 July 2011 and at a public open house on 14 August 2012. The stakeholders’ team, including BNSF representatives, voted for the eastbound undercrossing as the preferred alternative. Local residents reviewed and commented on the remaining three alternatives at the open house and the eastbound undercrossing again received the most votes.

2.4 Recommended Configuration The Recommended Configuration, Alternative 10 Eastbound Undercrossing, proposes the configuration of the interchange with a single intersection at East D Street on the north side of SR 509 with an eastbound on-ramp undercrossing at SR 509 and a slip ramp off-connection to East D Street from westbound SR 509. The following are some of the attributes of the Recommended Configuration: • Meets the objectives of the project’s purpose and need statement • Presents limited need for additional right of way • Includes least impact on BNSF facilities at south side of SR 509 • Creates redundant emergency access to/from the Tideflats area • Allows access for local businesses • Allows access for parks • Has minimum impact to environment • Presents minimal impact to East D Street • Has BNSF support • Has stakeholder support

2.5 Conclusions A total of 19 alternatives were evaluated for the construction of a new interchange on SR 509 at East D Street. A detailed screening process identified Alternative 10 – Eastbound Undercrossing as the Recommended Configuration. This alternative proposes the construction of a new half interchange with southbound and northbound SR 509 ramps to and from East D Street.

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3.0 POLICY POINT 3: OPERATIONAL AND COLLISION ANALYSIS How will the Recommended Configuration affect safety and traffic operations now and for the next 30 years?

3.1 Summary The Recommended Configuration analysis evaluated the proposal’s effect on the operation and safety of the surface streets and freeway systems. The analysis is consistent with the procedures and methods outlined in Policy Point 1 and documented in Appendix A-1.

Constructing the D Street ramps would address the project needs summarized in Section 1.1. The ramps would provide the Thea Foss peninsula with a SR 509 southbound off- ramp and a northbound on-ramp. The new interchange would improve access from SR 509 to the Tideflats area, the Tacoma Dome District, and the Thea Foss Waterway and the BNSF intermodal yard. The Recommended Configuration would also provide redundant routes for emergency access, which is one of the goals of this study. These redundant routes would improve access for the fire station on East F Street, as well as nearby stations to the southeast. The interchange would also take full advantage of the SR 167 extension that would provide an alternative route between I-5 and the study area. These changes would maximize the traffic utilization of SR 509 throughout the Tideflats.

The Recommended Configuration would reduce traffic volumes on SR 509 to the west of D Street and along the I-705 corridor. Volumes on the I-5 mainline would decrease slightly. Traffic conditions on SR 509 would meet LOS standards with the addition of the new ramps. Intersection LOS would generally improve throughout the study area. The new ramp terminal intersection of East D Street/SR509 would operate at a good LOS.

The proposed D Street ramps are not addressing existing or future safety problems. Therefore, the safety evaluation addressed the following questions: • Will the Recommended Configuration create a safety problem? • How will collisions be affected within the study area as a result of implementing the Recommended Configuration?

Adding new ramps to SR 509 will increase potential collisions between Portland Avenue and I-705 because of added volumes and the introduction of a new weaving section on SR 509. At the same time, other study area roadways (such as I-705 south of SR 509) would show a reduced potential of collisions because of lower traffic volumes and less congestion.

3.2 Analysis Methods and Assumptions The methodology for developing forecasts and many of the assumptions underlying this operations analysis are discussed in Appendix A-1. The memorandum explains the travel demand forecasting model’s development and details the assumptions. Appendix

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A-3 reviews the microsimulation assumptions used for the evaluation of the interchange configuration options. These methodologies were approved by the City, WSDOT, and FHWA.

3.2.1 Travel Demand Forecasting Forecasts of travel demand for the Recommended Configuration used the No-Build travel model with network modifications to include the proposed ramps. The AM and PM peak models were rerun to forecast shifts in travel patterns and routings resulting from the Recommended Configuration.

3.2.2 Operational and Safety Analysis The traffic operational methodology was the same as used for the No-Build analysis, as documented in Policy Point 1. Freeway and intersection configurations were modified as appropriate to account for the proposed ramps.

3.2.3 Collision Forecast Methodology The standard methodology for forecasting future collisions is to find an interchange location with a similar geometry and to apply that collision rate to the forecasted volume. This analysis has been conducted and is documented in Section 3.3.4. The analysis includes an estimate of collisions that would occur along SR 509 with and without the proposed ramps, along with an assessment of how collisions might be affected elsewhere within the study area.

3.3 Design Year Operations (2035) The Design Year is assumed to be 2035, representing the completion and full operation of the facility. This section describes the operation of freeways and intersections in the design year and a safety analysis comparing the Recommended Configuration to the No-Build Option. The Recommended Configuration assumes additional improvements to freeways, interchanges, arterials, or ramps within the study area identified in local and regional planning documents. The SR 167 extension is assumed to be constructed by 2035. The complete list of assumed improvements is found in Table 1-1 and Table 1-2.

3.3.1 Transportation Demand The East D Street ramps will create a localized change in travel patterns. As shown in Figure 3-1, the ramps will create several changes in PM peak hour traffic volumes. These include the following: • Volumes will increase on SR 509 between East D Street and Portland Avenue. Approximately 20 percent of the East D Street ramp volumes are forecasted to enter/exit at Portland Avenue. • Volumes will increase on East D Street and the East 24th and SE 26th connecting streets by 100-200 vph. These local trips are expected to shift away from Pacific Avenue and I-705. • Volumes will decrease along Puyallup Avenue and East 25th Street by 200-300 vehicles per hour due to the shift of traffic to the new East D Street ramps.

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• Volumes will increase on Portland Avenue between Puyallup Avenue and St. Paul Avenue by up to 200 vph. South of Puyallup Avenue, volumes on Portland Avenue will decrease by around 200 vph. • Volumes will decrease on local roads to the north of SR 509 (e.g., East 15th Street; St. Paul Avenue) by 200-300 vph due to the shift of traffic to the new East D Street ramps. • Volumes will decrease on SR 509 between East D Street and I-705 by 300+ vph. (- 6 percent). • Volumes will decrease on I-705 between I-5 and SR 509 by 100-150 vph (- 3 percent). • Volumes will decrease on I-5 by less than 50 vph.

Similar but smaller demand shifts would occur during the AM peak hour.

Truck volumes on SR 509 and adjacent streets would be higher in the Recommended Configuration compared to the No-Build condition. This is because construction of the East D Street ramps would attract additional truck traffic due to the improved connectivity to the BNSF rail yard. Additional details may be found in Appendix A-2.

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Figure 3-1. Peak demand volume changes

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3.3.2 Roadway Linkages and Access Similar to the 2035 No-Build Option, multiple port area and local access projects (listed in Table 1-1) would be in place by 2035 under the Recommended Configuration conditions, providing more direct routes into and out of the Tideflats Area and improved accessibility between the Port and Downtown Tacoma. The main difference under the Recommended Configuration would be the construction of a SR 509 northbound on-ramp and southbound off-ramp at East D Street. The new interchange would improve access from SR 509 to the Tideflats area, the Tacoma Dome District, and the Thea Foss Waterway and the BNSF Intermodal yard. The interchange would also take full advantage of the SR 167 extension that would provide an alternative route between I-5 and the study area.

The Recommended Configuration would also provide redundant routes for emergency access, which is one of the goals of this study. Currently, there are few routes available to access the Thea Foss peninsula and BNSF rail yard. Constructing the East D Street ramps would provide the Thea Foss peninsula with a SR 509 southbound off-ramp and a northbound on-ramp. This would improve access for the fire station on East F Street, as well as other nearby stations to the southeast. This improved connectivity would ease congestion and provide alternate routes for emergency vehicles.

3.3.3 Traffic Operations Traffic conditions were analyzed for the 2035 AM and PM peak hours for study freeway segments and major intersections.

Freeway Operations The freeway basic, merge, diverge, and weaving mainline segments were analyzed for the Recommended Configuration in the design year. With the construction of the East D Street half interchange, four of the study segments on SR 509 would change. In the northbound direction, the basic freeway segment east of I-705 would end at the East D Street on-ramp merge, and the Portland Avenue off-ramp diverge would be replaced with a weave segment between the new and existing ramps. Likewise, in the southbound direction, the Portland Avenue on-ramp merge would be replaced with a weave segment between it and the East D Street off-ramp, and the final basic segment before the I-705 interchange would begin at the off-ramp diverge point. Figure 3-2 displays the freeway segment locations under the Recommended Configuration.

Table 3-1 summarizes the I-705 and SR 509 mainline segment operations for the 2035 No-Build Option and Recommended Configuration. In the AM peak hour, the freeway traffic operations would be similar to No-Build conditions. None of the segments would have an LOS worse than C.

During the PM peak hour, the freeway segments would operate at a comparable LOS to the 2035 No-Build Option, and all segments would operate at LOS D or better. The southbound SR 509 basic segment east of the I-705 interchange would improve from LOS E to C under the Recommended Configuration.

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Table 3-1. 2035 Design Year Mainline Freeway Operations Summary Recommended No-Build Configuration (Density/LOS) (Density/LOS) ID* Location Type AM PM AM PM Peak Peak Peak Peak Hour Hour Hour Hour I-705 Northbound 1 I-5 On-ramp to SR 509 Off-ramp Weave 16/B 21/C 25/C 19/B 2 15th Street/A Street Off-ramp Diverge 11/B 17/B 11/B 17/B 3 SR 509 On-ramp to Schuster Parkway Basic 16/B 22/C 15/B 22/C I-705 Southbound 4 9th Street On-ramp Merge 21/C 27/C 21/C 27/C 5 9th Street On-ramp to 13th Street On-ramp Basic 22/C 29/D 22/C 29/D 6 13th Street On-ramp to SR 509 Off-ramp Weave 20/B 24/C 20/B 24/C 7 SR 509 Off-ramp to On-ramp Basic 16/B 19/C 17/B 19/C 8 SR 509 On-ramp to I-5 Off-ramp Weave 15/B 18/B 15/B 19/B SR 509 Northbound 9 I-705 Off-Ramp to Portland Avenue Off-ramp Basic 20/C 22/C - - 9 I-705 Off-Ramp to E D Street On-ramp Basic - - 18/B 21/C 10 E D Street On-ramp to Portland Avenue Off-ramp Weave - - 16/B 20/B 10 Portland Avenue Off-ramp Diverge 11/B 22/C - - 11 Portland Avenue Off-ramp to Port of Tacoma Road Basic 17/B 20/C 17/B 21/C SR 509 Southbound 12 Port of Tacoma Road to Portland Avenue On-ramp Basic 18/B 22/C 20/C 23/C 13 Portland Avenue On-ramp Merge 19/B 27/C - - 13 Portland Avenue On-ramp to E D Street Off-ramp Weave - - 17/B 21/C 14 E D Street Off-ramp to I-705 On-ramp Basic - - 19/C 24/C 14 Portland Avenue On-ramp to I-705 On-Ramp Basic 21/C 36/E - - *Refer to Figures 1-2 and 3-1. Note: Average volumes based on 10 VISSIM runs. The average density in vehicles per lane-mile for the study segment is reported. Density measured in passenger cars/mile/lane. Bold indicates that LOS does not meet City or WSDOT standards. Source: Fehr & Peers, 2012.

SR 509 Queuing The addition of the SR 509/East D Street ramps would divert traffic from the SR 509/I- 705 ramps intersection and reduce traffic volume at the southbound intersection approach compared to 2035 No-Build conditions. This volume reduction would result in less southbound delay during the PM peak hour and a shorter queue on SR 509. Table 3-2 shows that the maximum queue length with the Recommended Configuration would be cut in half compared to the No-Build condition. The queue would not affect the East D Street ramps on SR 509, which are located more than 2,000 feet from the SR 509/I-705 intersection.

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Table 3-2. Queuing at SR 509/I-705 Ramps Intersection Average Maximum 2035 No- 2035 2035 No- 2035 Approach 2012 2012 Build Recommended Build Recommended Existing Existing Option Configuration Option Configuration Southbound* 100 ft. 275 ft. 125 ft. 425 ft. 875 ft. 425 ft. *Distance to E. D Street off-ramp gore = 2,440 ft. Source: Fehr & Peers, 2012.

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Figure 3-2. Freeway segment locations. Recommended configuration.

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Intersection Operations The intersection analysis for the design year was based on the HCM 2000 methods for unsignalized and signalized intersections. Using the forecasted volumes for 2035, the study area intersections were evaluated to calculate the performance of intersection operations during the AM and PM peak hours.

The analysis includes the 15 evaluated for the No-Build Option in addition to the one signalized intersection created for the East D Street ramps. Figure 3-3 presents the AM and PM peak hour volumes and LOS for each intersection under the 2035 Recommended Configuration. Table 3-3 and Table 3-4 compare the intersection delay and LOS conditions for the AM and PM peak hours under No-Build and Recommended Configuration conditions.

During the AM peak hour, two side-street stop-controlled intersections would operate at LOS E or F, compared to three under the No-Build Option. For both intersections, the delay would decrease under the Recommended Configuration. With more Port-area automobile and freight traffic using SR 509 and the East D Street ramps for north-south travel, the unsignalized intersections on St. Paul Avenue would improve from LOS F to E at Portland Avenue and LOS F to C at East 15th Street.

During the PM peak hour, three intersections would operate at LOS E or F, compared to six under the No-Build Option. As with the AM peak hour, the unsignalized intersections on St. Paul Avenue would improve (from LOS E/F to C) with the diversion of traffic to SR 509 and the East D Street ramps. Other notable impacts include:

• The Pacific Avenue/East 21st Street intersection would remain LOS F, but delay would decrease slightly. • Delay at the East D Street/Puyallup Avenue intersection would decrease by 17 seconds, and LOS would improve from E to D due to more diversion of traffic onto SR 509. • • The Portland Avenue/Puyallup Avenue/Eells Street intersection would degrade by 19 seconds from LOS C to D, mainly due to the increase in southbound left- turning traffic originating from northbound SR 509.

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Table 3-3. Intersection LOS 2035 Design Year – AM Peak Hour Conditions Recommended No-Build Option 2035 Configuration Intersection Traffic Highest Highest Delay/ Delay/ Control Delay Delay LOS LOS Movement* Movement* 1 Portland Avenue/East 28th Street Signal 31/C - 30/C - 2 Portland Avenue/East 27th Street Signal 24/C - 24/C - 3 Portland Avenue/East 26th Street SSSC 190/F EBL 144/F EBL Portland Avenue/East 25th 4a SSSC 32/D EBL 32/D EBL Street/Puyallup Avenue Portland Avenue/Puyallup Avenue/ 4b Signal 17/B - 17/B - Eells Street 5 Portland Avenue/SR 509 NB Off-ramp Signal 8/A - 12/B - 6 Portland Avenue/SR 509 SB On-ramp Signal 1/A - 1/A - 7 Portland Avenue/St. Paul Avenue SSSC 55/F EBL 41/E EBL 8 East 15th Street/St. Paul Avenue SSSC 94/F NBL 24/C NBL 9 Pacific Avenue/East 21st Street Signal 26/C - 25/C - 10 SR 509/I-705 Ramps Signal 26/C - 32/C - 11 East 26th Street/I-705 Off-ramp Signal 9/A - 11/B - 12 East D Street/East 26th Street Signal 22/C - 23/C - 13 East D Street/East 25th Street Signal 12/B - 16/B - 14 East D Street/Puyallup Avenue Signal 23/C - 21/C - 15 East D Street/Dock Street Extension Signal 4/A - 7/A - 16 SR 509 Ramps/East D Street SSSC/Signal - - 8/A - Note: Bold indicates that LOS does not meet City or WSDOT standards. SSSC = Side-Street Stop-Controlled. Unct. = Uncontrolled. EBL = eastbound left. EBR = eastbound right. NBL = northbound left. SR 509 Ramps/East D Street intersection does not exist under 2012 existing conditions. *Determines delay at unsignalized intersections. Source: Fehr & Peers, 2012.

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Table 3-4. Intersection LOS 2035 Design Year – PM Peak Hour Conditions Recommended No-Build Option Configuration 2035 Highest Intersection Traffic Highest Delay/ Delay/ Delay Control Delay LOS LOS Movement Movement* * 1 Portland Avenue/East 28th Street Signal 29/C - 28/C - 2 Portland Avenue/East 27th Street Signal 39/D - 35/C - 3 Portland Avenue/East 26th Street SSSC >250/F EBL >250/F EBL Portland Avenue/East 25th 4a SSSC >250/F EBL 211/F EBL Street/Puyallup Avenue Portland Avenue/Puyallup Avenue/Eells 4b Signal 26/C - 45/D - Street 5 Portland Avenue/SR 509 NB Off-ramp Signal 6/A - 21/C - 6 Portland Avenue/SR 509 SB On-ramp Signal 2/A - 4/A - 7 Portland Avenue/St. Paul Avenue SSSC 60/F EBR 17/C EBL 8 East 15th Street/St. Paul Avenue SSSC 43/E NBL 16/C NBL 9 Pacific Avenue/East 21st Street Signal 86/F - 83/F - 10 SR 509/I-705 Ramps Signal 44/D - 29/C - 11 East 26th Street/I-705 Off-ramp Signal 9/A - 9/A - 12 East D Street/East 26th Street Signal 42/D - 47/D - 13 East D Street/East 25th Street Signal 17/B - 20/B - 14 East D Street/Puyallup Avenue Signal 56/E - 39/D - 15 East D Street/Dock Street Extension Signal 5/A - 9/A - 16 SR 509 Ramps/East D Street SSSC/Signal - - 9/A - Note: Bold indicates that LOS does not meet City or WSDOT standards. SSSC = Side-Street Stop-Controlled. Unct. = Uncontrolled. EBL = eastbound left. EBR = eastbound right. NBL = northbound left. SR 509 Ramps/East D Street intersection does not exist under 2012 existing conditions. *Determines delay at unsignalized intersections. Source: Fehr & Peers, 2012.

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Figure 3-3. 2035 Recommended Configuration intersection turning movements and level of service – page 1

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Figure 3-3. Recommended Configuration intersection turning movements and level of service – page 2

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3.3.4 Safety The proposed SR 509 D Street ramps are not addressing existing or future safety problems. Therefore, the safety evaluation addressed the following questions: • Will the Recommended Configuration create a safety problem? • How will collisions be affected within the study area as a result of implementing the Recommended Configuration?

The standard methodology for forecasting future collisions is to find an interchange location with a similar geometry and to apply that collision rate to the forecasted volume. The Recommended Configuration will create two new ramp merge/diverge points and a weave section on SR 509. The following similar locations were selected as merge/diverge comparisons: • SR 509 / Portland Avenue On-ramp and Off-ramp • I-5 / Portland Avenue Off-ramp from the east

The following similar locations were selected as weave comparisons: • I-705 northbound from I-5 On-ramp to SR 509 Off-ramp • I-705 southbound from 13th Street On-ramp to SR 509 Off-ramp

Table 3-5 documents the comparison freeway collision rates. Note that average collision and fatality rates are computed for segment types that have more than one comparison segment.

Table 3-5. Comparable Freeway Segments Collision Rates Total Fatality Collision 2012 Collisions Rate Rate ADT (2008- (100MV (MVM) 2011) M) On-Ramp Comparison Segments SR 509 Southbound E. Portland Avenue On-ramp 4,260 0 0.00 0.00 Off-Ramp Comparison Segments SR 509 Northbound E. Portland Avenue Off-ramp 3,030 1 0.94 0.00 I-5 Southbound E. Portland Avenue Off-ramp 11,100 12 4.11 0.00 Average Collision and Fatality Rate for Off-ramp 2.53 0.00 Weave Comparison Segments I-705 Northbound from I-5 On-ramp to SR 509 Off-ramp 26,080 4 0.70 0.00 I-705 Southbound from 13th Street On-ramp to SR 509 Off- 36,790 8 0.57 0.00 ramp Average Collision and Fatality Rate for Weave Section 0.63 0.00

The collision rates from Table 3-5 were applied to the freeway segments and ramps on SR 509 between I-705 and East Portland Avenue. These results are shown in Table 3-6. Table 3-6 shows the length of each study segment as well as the projected volumes in

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2035. Within these limits along SR 509, the Recommended Configuration could result in 6.6 annual collisions by 2035. These collisions include those along mainline SR 509 plus the effects of the new D Street ramps. While implementing the new ramps would generally increase volumes along SR 509, the segment between I-705 and East D Street would have lower volumes and collisions with the Recommended Configuration.2 As a comparison, the number of collisions was forecast along the same stretch of SR 509 under the No Build Option alternative. As shown in Table 3-6, the Recommended Configuration could generate 2.4 more annual collisions than the No-Build Option within these SR 509 limits.

Table 3-6. Projected Number of Collisions for 2035 on SR 509 Between I-705 and East Portland Avenue Ramps – Recommended Configuration and No-Build Option Projected Number Collision Rate Length 2035 ADT of Collisions in (MVM) 2035 Recommended Configuration NB SR 509: I-705 NB On-ramp to East D 0.71 22,660 0.32 1.9 Street On-ramp NB SR 509: D Street On-ramp 0.46 7,750 0.00 0.0 NB SR 509: Weave section from East D Street On-ramp to East Portland Avenue 0.08 29,690 0.63 0.5 Off-ramp SB SR 509: Weave section from East Portland Avenue On-ramp to D Street Off- 0.12 31,310 0.63 0.9 ramp SB SR 509: East D Street Off-ramp 0.30 5,990 2.53 1.7 SB SR 509: East D Street Off-ramp to 0.63 25,930 0.26 1.6 I-705 NB Off-ramp Total Recommended Configuration Collisions 6.6 No-Build Option NB SR 509: I-705 NB On-ramp to East 0.79 25,140 0.32 2.3 Portland Avenue Off-ramp SB SR 509: East Portland Avenue to 0.75 26,880 0.26 1.9 I-705 NB Off-ramp Total No-Build Collisions 4.2 Change in Collisions with Recommended Configuration +2.4

This collision analysis focused only on the immediate project area along SR 509. As previously shown in Figure 3-1, constructing the East D Street ramps would result in a decrease in volumes at other locations, partially offsetting the increase in collisions projected in the vicinity of the East D Street ramps. For instance, volumes are expected to drop on I-705 south of the SR 509 interchange. A comparison of the total number of collisions projected on that freeway segment under the No-Build Option and the

2 Note that the fatality rate for all of the comparison locations is zero. Therefore no fatalities are projected to occur in 2035.

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Recommended Configuration showed that under No-Build, 8.5 collisions are projected and under the Recommended Configuration, 8.3 collisions are projected, for a net decrease of 0.2 annual collisions.

The Recommended Configuration would also result in a new T-intersection at the terminus of the ramps at East D Street. It is expected that a minimal number of collisions would occur, since T-intersections have few conflicting movements. Therefore, there are no substantial safety concerns at the new T-intersection.

3.4 Year of Opening Conditions (2015) The Recommended Configuration opening year is assumed to be 2015. This section describes the operation of freeways and intersections at the year of opening and a safety analysis comparing the Recommended Configuration to the No-Build Option. Both configuration options assume additional improvements to freeways, interchanges, arterials, or ramps within the study area identified in local and regional planning documents. The SR 167 interchange and extension is not assumed in 2015. The complete list of assumed improvements is found in Table 1-1 and Table 1-2.

3.4.1 Transportation Demand Transportation demand for the 2015 Recommended Configuration condition was calculated by interpolation in the same manner as described for the No Build condition (see Section 1.5.1).

3.4.2 Roadway Linkages and Access As described previously, the Recommended Configuration would improve connectivity in the study area, allowing improved emergency access and redundant routes in and out of the study area. Since the SR 167 extension would not be in place by 2015, the potential usage of the D Street ramps would be somewhat reduced.

3.4.3 Traffic Operations Traffic conditions were analyzed for the 2015 Recommended Configuration AM and PM peak hours for study freeway segments and major intersections.

Freeway Operations The freeway mainline, merge and diverge points, and weaving segments were analyzed for the Recommended Configuration in the opening year. Table 3-7 summarizes the I-705 and SR 509 operations for the 2015 Recommended Configuration.

I-705 and SR 509 traffic does not grow very much between 2012 and 2015 under either the No-Build or Recommended Configuration Option. In the AM peak hour, density would not increase on any of the study segments. During the PM peak hour, segment density would also be very similar to the No-Build Option conditions. All segments would operate at LOS C or better during both travel peaks.

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Table 3-7. 2015 Opening Year Mainline Freeway Operations Summary Recommended No-Build Configuration (Density/LOS) ID (Density/LOS) Location Type * AM PM AM PM Peak Peak Peak Peak Hour Hour Hour Hour I-705 Northbound 1 I-5 On-ramp to SR 509 Off-ramp Weave 18/B 18/B 14/B 17/B 2 15th Street/A Street Off-ramp Diverge 16/B 16/B 11/B 16/B 3 SR 509 On-ramp to Schuster Parkway Basic 21/C 21/C 13/B 21/C I-705 Southbound 4 9th Street On-ramp Merge 26/C 26/C 17/B 26/C 5 9th Street On-ramp to 13th Street On-ramp Basic 25/C 25/C 17/B 25/C 6 13th Street On-ramp to SR 509 Off-ramp Weave 21/C 21/C 16/B 21/C 7 SR 509 Off-ramp to On-ramp Basic 16/B 16/B 16/B 16/B 8 SR 509 On-ramp to I-5 Off-ramp Weave 16/B 16/B 16/B 17/B SR 509 Northbound 9 I-705 Off-Ramp to Portland Avenue Off-ramp Basic 20/C 20/C - - 9 I-705 Off-Ramp to E D Street On-ramp Basic - - 16/B 20/C 10 E D Street On-ramp to Portland Avenue Off-ramp Weave - - 12/B 17/B 10 Portland Avenue Off-ramp Diverge 20/B 20/B - - 11 Portland Avenue Off-ramp to Port of Tacoma Road Basic 17/B 17/B 13/B 18/B SR 509 Southbound 12 Port of Tacoma Road to Portland Avenue On-ramp Basic 18/B 18/B 13/B 18/B 13 Portland Avenue On-ramp Merge 20/B 20/B - - 13 Portland Avenue On-ramp to East D Street Off- Weave - - 13/B 19/B ramp 14 E D Street Off-ramp to I-705 On-ramp Basic - - 15/B 22/C 14 Portland Avenue On-ramp to I-705 On-Ramp Basic 22/C 22/C - - *Refer to Figures 1-2 and 3-1. Note: Average volumes based on 10 VISSIM runs. The average density in vehicles per lane-mile for the study segment is reported. Density measured in passenger cars/mile/lane. Bold indicates that LOS does not meet City or WSDOT standards. Source: Fehr & Peers, 2012.

Intersection Operations The intersection analysis for opening year was based on the HCM 2000 methods for unsignalized and signalized intersections. Using the forecasted volumes for 2015, the study area intersections were evaluated to calculate the performance of intersection operations during the AM and PM peak hours. Table 3-8 and Table 3-9 present the results of intersection analysis in 2015 for the Recommended Configuration. Figure 3-4 shows the volume, geometry, and LOS for the study intersections during the AM and PM peak hours.

The analysis included the 15 intersections evaluated for the No-Build Option in addition to the one signalized intersection created for the E D Street ramps. In the AM peak hour, the Portland Avenue/East 26th Street intersection would continue to operate at LOS F

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but would not increase in terms of delay compared to the 2015 No-Build Option. None of the remaining intersections would operate substantially differently than No-Build conditions, and LOS would not exceed C.

During the PM peak hour, two intersections would operate at LOS E or F with similar delay compared to the No-Build Option. The congested signalized intersection Pacific Avenue/East 21st Street would remain at LOS E. Likewise, the side-street stop-controlled Portland Avenue/East 26th Street intersection would remain LOS F due to the scarcity of gaps for the small volume of eastbound left-turning vehicles. All other intersections would operate at LOS C or better.

Table 3-8. Intersection LOS 2015 Opening Year – AM Peak Hour Conditions Recommended No-Build Option 2015 Configuration Intersection Traffic Highest Highest Delay/ Delay/ Control Delay Delay LOS LOS Movement* Movement* 1 Portland Avenue/East 28th Street Signal 21/C - 28/C - 2 Portland Avenue/East 27th Street Signal 22/C - 14/B - 3 Portland Avenue/East 26th Street SSSC 60/F EBL 58/F EBL Portland Avenue/East 25th 4a SSSC 15/C EBL 15/C EBL Street/Puyallup Avenue Portland Avenue/Puyallup 4b Signal 16/B - 16/B - Avenue/Eells Street 5 Portland Avenue/SR 509 NB Off-ramp Signal 10/A - 10/A - 6 Portland Avenue/SR 509 SB On-ramp Signal 1/A - 1/A - 7 Portland Avenue/St. Paul Avenue SSSC 17/C EBL 17/C EBL 8 East 15th Street/St. Paul Avenue SSSC 14/B NBL 14/B NBL 9 Pacific Avenue/East 21st Street Signal 27/C - 26/C - 10 SR 509/I-705 Ramps Signal 21/C - 23/C - 11 East 26th Street/I-705 Off-ramp Signal 8/A - 6/A - 12 East D Street/East 26th Street Signal 19/B - 18/B - 13 East D Street/East 25th Street Signal 7/A - 7/A - 14 East D Street/Puyallup Avenue Signal 12/B - 14/B - 15 East D Street/Dock Street Extension Signal 4/A - 5/A - SSSC/ 16 SR 509 Ramps/East D Street - - 3/A - Signal Note: Bold indicates that LOS does not meet City or WSDOT standards. SSSC = Side-Street Stop-Controlled. Unct. = Uncontrolled. EBL = eastbound left. EBR = eastbound right. NBL = northbound left. SR 509 Ramps/East D Street intersection does not exist under No-Build Option conditions. *Determines delay at unsignalized intersections. Source: Fehr & Peers, 2012.

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Table 3-9. Intersection LOS 2015 Opening Year – PM Peak Hour Conditions Recommended No-Build Option Configuration 2015 Highest Intersection Traffic Highest Delay/ Delay Delay/ Control Delay LOS Movement LOS Movement* * 1 Portland Avenue/East 28th Street Signal 26/C - 26/C - 2 Portland Avenue/East 27th Street Signal 25/C - 25/C - 3 Portland Avenue/East 26th Street SSSC >250/F EBL >250/F EBL Portland Avenue/East 25th 4a SSSC 30/D EBL 21/C EBL Street/Puyallup Avenue Portland Avenue/Puyallup 4b Signal 25/C - 25/C - Avenue/Eells Street 5 Portland Avenue/SR 509 NB Off-ramp Signal 5/A - 6/A - 6 Portland Avenue/SR 509 SB On-ramp Signal 2/A - 3/A - 7 Portland Avenue/St. Paul Avenue SSSC 14/B EBL 13/B EBR 8 East 15th Street/St. Paul Avenue SSSC 12/B NBL 12/B NBL 9 Pacific Avenue/East 21st Street Signal 77/E - 78/E - 10 SR 509/I-705 Ramps Signal 27/C - 24/C - 11 East 26th Street/I-705 Off-ramp Signal 8/A - 7/A - 12 East D Street/East 26th Street Signal 25/C - 29/C - 13 East D Street/East 25th Street Signal 8/A - 10/A - 14 East D Street/Puyallup Avenue Signal 19/B - 21/C - 15 East D Street/Dock Street Extension Signal 4/A - 4/A - SSSC/ 16 SR 509 Ramps/East D Street - - 3/A - Signal Note: Bold indicates that LOS does not meet City or WSDOT standards. SSSC = Side-Street Stop-Controlled. Unct. = Uncontrolled. EBL = eastbound left. EBR = eastbound right. NBL = northbound left. SR 509 Ramps/East D Street intersection does not exist under No-Build Option conditions. *Determines delay at unsignalized intersections. Source: Fehr & Peers, 2012.

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Figure 3-4. Recommended Configuration intersection turning movements and level of service – page 1

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Figure 3-4. Recommended Configuration intersection turning movements and level of service – page 2

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3.4.4 Safety As discussed in the 2035 Recommended Configuration safety section 3.3.4, compared to the No-Build Option, the purpose of the proposed project is not to reduce collisions, although the Recommended Configuration is expected to operate in a safe manner. The same traffic shift trends described for 2035 would occur in 2015, although traffic volumes would be lower. The shifting volumes, along with the modified characteristics of SR 509 (including a new weave section), would result in an increased number of collisions on SR 509 in 2015. Other locations, such as I-705 south of SR 509, would have fewer collisions because of the decreased traffic volumes.

3.5 Midday Conditions A qualitative examination of midday traffic conditions was made for the Recommended Configuration. Since a primary purpose of the proposed East D Street ramps is to provide improved freight mobility within the Tideflats area, truck movements are important considerations in evaluating the effectiveness of the project. As shown in Figure 1-1, total volumes on SR 509 follow typical AM and PM peaking patterns, while truck volumes stay fairly steady throughout the day and are actually lower during the PM peak hour from 4–5 pm. By 2035, during midday periods, trucks will comprise 15 percent or more of the SR 509 freeway volumes. Truck volumes on the East D Street ramps could be triple the PM peak volumes, taking into account current truck patterns and the proposed Puyallup Tribal Terminal dray operations.

Midday (e.g., 11–2 pm) traffic volumes on SR 509, the East D Street ramps, and connecting arterials would be heavily truck-oriented. Ramp truck volumes could be in the range of 150-200 vehicles per hour in each direction, which would represent a steady flow of trucks throughout the hour. Conversely, non-truck midday volumes would likely be quite small, as evidenced by the current peaking patterns on SR 509 and the likely patterns of land use growth within the City.

As a result, total midday traffic volumes within the study area would remain lower than either the AM or PM peak hour volumes that were used for the detailed traffic analysis. It is unlikely that midday volumes would create additional LOS impacts. However, considerations for the heavy midday truck volumes should factor into the design of the ramp terminal intersection on East D Street and the ramp geometrics.

3.6 Conclusions Constructing the East D Street ramps would address the project needs summarized in Policy Point 1. The ramps would provide the Thea Foss peninsula with an SR 509 southbound off-ramp and a northbound on-ramp. The new interchange would improve access from SR 509 to the Tideflats area, the Tacoma Dome District, and the Thea Foss Waterway and the BNSF Intermodal yard. The Recommended Configuration would also provide redundant routes for emergency access. In addition, the interchange would take full advantage of the SR 167 extension that would provide an alternative route between I-5 and the study area. These changes would maximize the traffic utilization of SR 509 throughout the Tideflats.

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The Recommended Configuration would reduce traffic volumes on SR 509 to the west of East D Street and along the I-705 corridor. Volumes on the I-5 mainline would decrease slightly. Traffic conditions on SR 509 would meet LOS standards with the addition of the new ramps. Intersection levels of service would generally improve throughout the study area. The new ramp terminal intersection of East D Street/SR 509 would operate at a good level of service.

While the proposed East D Street ramps are not needed to address existing or future safety problems, a safety evaluation addressed how the Recommended Configuration would affect traffic safety in the study area. Adding new ramps to SR 509 will increase potential collisions between Portland Avenue and I-705 because of added volumes and the introduction of a new freeway weaving section on SR 509. At the same time, other study area roadways (such as I-705 south of SR 509) would show a reduced potential of collisions because of lower traffic volumes and less congestion.

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4.0 POLICY POINT 4: ACCESS CONNECTIONS AND DESIGN Will the Recommended Configuration provide fully directional interchanges connected to public streets or roads, spaced appropriately, and designed to full design level geometric control criteria?

4.1 Summary The Recommended Configuration provides southbound off-ramp and northbound on- ramp access between SR 509 and East D Street via a new half interchange that connects the state highway to the local street city network. The design of the Recommended Configuration meets most of the current geometric standards. A design deviation for reduced spacing between interchanges will be submitted to WSDOT.

4.2 Directionality The Recommended Configuration features the construction of a half interchange at SR 509 and East D Street. The ramps to and from SR 509 will be aligned to provide a northbound directional on-ramp from East D Street to SR 509 and a southbound directional off ramp from SR 509 to East D Street.

4.3 Access Connections to Public Roads The interchange connections that are proposed are to public highways and roads. Creation of the East D Street ramps to and from SR 509 will provide connections to Dock Street, Puyallup Avenue, East 15th Street, and many local businesses. Additionally, this new interchange will provide redundant emergency vehicle access within the Tideflats area.

4.4 Design Standards and Deviations The design of the proposed new interchange followed the procedures outlined in the WSDOT DM for full design levels following Design Matrix 4, Line 8 (Urban Mobility). The Recommended Configuration meets all design criteria for speed, lane widths, shoulder widths, grades, and horizontal and vertical sight distances. Detailed design criteria will be presented in the Channelization Plans for Approval.

Table 4-1 describes milepost locations and relative spacing between the Recommended Configuration and the most immediate interchanges and ramps. As shown in the table, the Recommended Configuration meets DM Exhibit 1360-3 for Minimum Ramp Connection Spacing. However, the close proximity of East D Street to I-705 and East Portland Avenue does not allow for the desired 1- mile minimum spacing between adjacent interchanges. The reduced interchange spacing will require a deviation.

Table 4-1. Interchange Spacing Recommended Configuration Milepost (MP)1 Interchange Spacing 2 Ramp Spacing 2,5 East D Street Interchange with SRMP (ARM) (miles) (miles) SR 509 SR 509 Interchange with I-705 0.00 (0.00) 0.21 3 0.42 (+/-2241 ft) SR 509 Interchange with 1.02 (1.02) 0.81 4 0.31 (+/-1661 ft) East Portland Ave. 1 - WSDOT – State Highway Log, Planning Report 2011, Olympic Region

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2 - All length measurements are calculated using the accumulated route MP (ARM) value 3 - Distance measured from SR 509/I-705 interchange to proposed SR 509 interchange with East D Street (MP 0.21 - ARM 0.21) 4 - Distance measured from proposed East D Street (MP 0.25 - ARM 0.25) to Frontage Road exit/entrance west of Port of Tacoma Road 5 - Shortest length measured between on-/off-ramps along either westbound or eastbound SR 509

4.5 Justification SR 509 is a state owned and controlled facility. Therefore, any design deviations will require approval from WSDOT’s Olympic Region and Headquarters’ Office. As mentioned above, the Recommended Configuration will require a deviation for reduced spacing between adjacent interchanges. Detailed operational analysis (VISSIM) of the Recommended Configuration demonstrated that despite the reduced spacing between interchanges, the proposed southbound and northbound ramps will not degrade SR 509 beyond acceptable levels. In fact weaving analysis resulted in LOS C on SR 509 and no significant back-ups at the East Portland Avenue or I-705 interchanges of SR 509. Detailed operational and weaving analysis will be presented as justification for the reduced spacing between adjacent interchanges.

4.6 Conclusion The Recommended Configuration provides direct access to northbound and southbound SR 509 from and to East D Street. The close proximity of East D Street to I- 705 and East Portland Avenue interchanges will require a deviation for reduced interchange spacing; however, detailed analysis has shown that the reduced spacing does not affect operations in the area.

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5.0 POLICY POINT 5: LAND USE AND TRANSPORTATION PLANS Is the proposed access point revision compatible with all land use and transportation plans for the area?

5.1 Summary The planning process that led to the Recommended Configuration for the SR 509 /East D Street Interchange Improvements Project considered land use and transportation plans and policies for the project area. The proposed access point is compatible with the adopted plans and policies. The project design was developed to ensure consistency with the following:

• Local – City of Tacoma Comprehensive Plan, 2009–2014 Capital Facilities Program, and Shoreline Master Program (SMP); Tideflats Area Transportation Study (TATS); and Thea Foss Development Authority Master Redevelopment Strategy • State – Washington State Department of Transportation (WSDOT) Washington Transportation Plan (WTP) and WSDOT Washington State Highway System Plan (HSP) • Regional – Puget Sound Regional Council (PSRC) Transportation 2040, Pierce County Comprehensive Plan, and Sound Transit Regional Transit Long-Range Plan

Detailed information on adopted plans is discussed in sections 5.2 to 5.5 below. Some documents do not refer specifically to this interchange project, but the consistency of the project with the policies represented in those plans is discussed below.

The development of the Recommended Configuration included a public involvement process in which a TAC comprising key stakeholders and members of the public reviewed the preliminary designs during public meetings. This outreach helped select the Recommended Configuration, which is consistent with the plans listed above and with the goals expressed by the TAC.

5.2 Land Use The City of Tacoma Comprehensive Plan identifies both current and future land uses for the City. The land use element of the City’s Comprehensive Plan has been prepared in accordance with the requirements of the state Growth Management Act (GMA) and countywide planning policies for Pierce County. The primary intent of the land use element is to guide local decision-making to allow the growth and development of the community.

5.2.1 Current Land Use and Zoning Current land uses adjacent to the proposed interchange project are industrial and commercial. To the west of the project site is the City’s primary business district which runs north and south along Pacific Avenue. North and south of SR 509, the area is developed with heavy commercial and industrial uses. Zoning at the project site is Heavy Industrial.

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5.2.2 Future Land Use Future land uses adjacent to the project site will continue to be industrial. According to the TATS, the area around the Port and the City is expected to continue to grow, with numbers of households increasing by 85 percent and the number of jobs by 45 percent. These changes are expected to result in major increases in traffic volumes in the area. These increased traffic volumes will add to the already congested roadways near the Port and on local roadways. The Recommended Configuration is intended to alleviate traffic congestion and improve traffic flow in the area and aligns with anticipated future land use and growth in the project area.

5.2.3 Land Use Impacts No impacts have been identified in the proposed Recommended Configuration that would affect the goals and objectives of the City’s Comprehensive Plan, the current zoning in the area, or the policies and regulations of the City’s Shoreline Master Program.

5.3 Local Transportation and Land Use Plans

5.3.1 City of Tacoma Comprehensive Plan The City’s Comprehensive Plan was adopted in 1993 to set goals and policies to protect the health, welfare, safety, and quality of life of Tacoma's residents over the next 20 years. The plan was last updated in June 2012, continuing the original 1993 plan vision. The plan contains five primary elements mandated by the state GMA: land use, transportation, housing, capital facilities, and utilities.

As identified in Section I General Goals and Policies, the goal of the plan’s transportation element is to “achieve a multimodal transportation system that efficiently moves people and goods with optimum safety and speed, maximizes the conservation of energy, and minimally disrupts the desirable features of the environment.” The Recommended Configuration will provide additional roadway capacity and more efficient access for general traffic into the City’s residential and business areas and improve freight mobility in and out of the Port. Improving traffic flow in this area will result in reduced idling times and may reduce the amount of gas used and gas emissions from vehicles that would otherwise be subject to traffic congestion. Lastly, the Recommended Configuration has been designed to have the least impact on areas adjacent to the Thea Foss Waterway and to the Waterway Park. Therefore, the Recommended Configuration meets the goal of the Comprehensive Plan.

5.3.2 City of Tacoma Capital Facilities Program (Metro Parks Tacoma – Waterway Park) The City’s Capital Facilities Program for 2009 to 2014 identifies the Waterway Park Kayak Float as a project to be completed in 2009 by Metro Parks Tacoma (construction of the kayak float was completed and it is in use, but construction of the upland park areas is still in development). Waterway Park is located immediately southwest of the intersection of SR 509 and D Street. The Metro Parks Tacoma website identifies ongoing

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development and design of the upland portions of Waterway Park, with construction planned for the near future.

The project team has coordinated with Metro Parks Tacoma and the Thea Foss Development Authority to ensure that the Recommended Configuration aligns with the goals of the Waterway Park development plans and park design. Through design refinements resulting from TAC review, the project team shifted the interchange access point approximately 250 feet to the north along East D Street away from the planned park access driveway. This design change minimizes the potential for traffic conflicts at the park access and continued coordination will ensure the compatibility of the Recommended Configuration and the SR 509 East D Street Interchange Project with the development and use of the park.

5.3.3 City of Tacoma Shoreline Master Program Portions of the project area fall within a designated shoreline district (Shoreline District S-8 Thea Foss Waterway District) which extends to the eastern edge of the right of way of East D Street. According to the City’s final draft SMP, new roadways, including expansions or reconstruction of roadways, are allowed in port and heavy industrial areas. The final draft SMP also states explicitly that the SR 509 ramps are an allowed use in this shoreline district. The proposed Recommended Configuration is also consistent with the goals of the S-8 shoreline district because the project improves transportation linkages within the Thea Foss Waterway area.

5.3.4 Tideflats Area Transportation Study The TATS was finalized in June 2011 and includes the Port, Downtown Tacoma, the City of Fife, and portions of unincorporated Pierce County and the Puyallup Indian Reservation. The proposed Recommended Configuration falls within the study area of the TATS. The purpose of the study was to identify necessary transportation improvements along the key truck routes between the Port and industrial centers.

The result of the study was a list of recommended projects that would improve traffic operations and help reduce the number of intersections that would operate below acceptable LOS. One of the identified projects was the construction of an interchange on SR 509 at D Street. Therefore, the SR 509 D Street Interchange Improvement Project and the Recommended Configuration are compatible with the TATS.

5.3.5 Thea Foss Development Authority Master Redevelopment Strategy The Master Redevelopment Strategy update was drafted in July 2012 by the Thea Foss Development Authority in coordination with the City. This plan identifies Waterway Park as an infrastructure priority within the next 6 years. As mentioned previously, the project team has coordinated with the Thea Foss Development Authority and designed the Recommended Configuration and the SR 509 East D Street Interchange Project to minimize potential conflicts with park access.

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5.4 Statewide Transportation Plans

5.4.1 WSDOT Washington State Transportation Plan The WTP is the statewide strategic 20-year plan for transportation modes, both state- owned and of state interest. The current WTP, which covers 2007 to 2026, was adopted in February 2002. The WTP is the WSDOT decision tool that links state and regional transportation plans to provide strategies for transportation investments. In December 2010, WTP 2030 was finalized as a policy update to the existing WTP. The update was completed in order to reflect recent changes and challenges in the state as well as to help inform decisions and policy discussions related to transportation. Actions recommended in the WTP include projects to improve the movement of freight and goods. The proposed project is consistent with the goals of the WTP, because the new interchange will improve traffic congestion and freight mobility in the area.

5.4.2 WSDOT State Highway System Plan The Washington HSP is the state highway element of the WTP. The HSP identifies state highway needs for a 20-year planning horizon and conceptual solutions (including conceptual cost estimates) for those needs. The HSP contains general information on Washington’s highway programs and how they are balanced with funding projections. Appendix J of the HSP identifies the SR 509 East D Street Interchange Project as a need because of congestion in the project area.

5.5 Regional Transportation Plans

5.5.1 Puget Sound Regional Council Transportation 2040 Plan Transportation 2040, the transportation plan developed by PSRC, is a long-range plan for transportation improvements in the Puget Sound region. The plan sets regional transportation policies, lists regional transportation needs in the form of programs and projects, describes a financial strategy to meet those needs, and discusses implementation and monitoring strategies. Transportation 2040 is an extensive revision to PSRC’s Destination 2030 transportation plan that addresses emerging transportation trends and enhances aspects that deal with the safety, security, and transportation needs of the region. The SR 509 East D Street Interchange Project is listed as one of the area’s Transportation 2040 State Route Investments. Therefore, the Transportation 2040 plan recognizes the need for improved access and circulation at this location as provided by the Recommended Configuration.

5.5.2 Pierce County Comprehensive Plan The transportation element of the Pierce County Comprehensive Plan, originally adopted in November 1994, describes policies and recommends strategies that will help meet future demands for transportation services and infrastructure in Pierce County. Additional goals include improving the Port’s accessibility to the freight market. The Port is among the largest container ports in North America and serves local, regional, national, and international markets. The Recommended Configuration is consistent with

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the Pierce County Comprehensive Plan as it will improve mobility in the area, especially the ability of shippers to move freight to and from the Port.

5.5.3 Sound Transit Sound Transit’s Regional Transit Long-Range Plan creates a comprehensive, regional high-capacity travel network that is dependable and helps maintain the region’s economic strength. The plan’s goal is to provide a transportation system that helps ensure long-term mobility, connectivity and convenience while contributing to the region’s economic vitality. Connecting major economic focal points in the region depends on the travel corridors that link these locations. SR 509 is an example of a regional travel corridor.

Within the study area, SR 509 experiences traffic congestion during peak hours and continuous freight traffic to and from the Port throughout the day. Traffic is expected to continue to increase over the next few years, causing the intersection of SR 509 and East D Street to operate at unacceptable LOS and worsen congestion on both roadways. The proposed access point will satisfy the current and future demand for travel in the study area and help relieve congestion on SR 509 consistent with the goals of Sound Transit’s plan—by keeping the region moving dependably and efficiently.

5.6 Conclusion Because of the improvements it will make to safety and mobility in the project area, the Recommended Configuration is consistent with applicable local, regional, and statewide plans and is compatible with the land use and transportation needs in the project vicinity.

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6.0 POLICY POINT 6: FUTURE INTERCHANGES Is the proposed access point revision compatible with a comprehensive network plan? Is the proposal compatible with other known new access points and known revisions to existing points?

6.1 Summary The new access point of the interchange at SR 509 and East D Street is compatible with the comprehensive transportation network in the region.

The development of the Recommended Configuration considered other access point revisions planned in the vicinity of the project area. Other than the access point revisions listed below, no additional proposed revisions are expected for the area.

• Port of Tacoma Road Interchange with I-5 • SR 167 Extension I-5/SR 167 Interchange • Tacoma/Pierce County HOV Program

The SR 509 East D Street Interchange Project will operate with or without the construction of these other projects. However, as discussed in section 1.2.2, a critical assumption was to include the SR 167 Extension to I-5 in the 2035 analysis. This roadway addition was identified as a critical improvement needed to maintain sufficient operations in the study area.

6.2 Previous Planning for SR 509 and East D Street Interchange In 2008, preliminary concepts and cost information for the proposed slip ramps at the SR 509 and East D Street Interchange were identified in the East Thea Foss Transportation Corridor Study and in the TATS. The preliminary configuration would have created one westbound off-ramp to East D Street from SR 509 and one eastbound on-ramp from East D Street to SR 509 in a configuration similar to a Single Point Urban Interchange (SPUI).

6.3 Other Proposed Projects Considered Within the study area, a number of additional improvements are planned. These improvements have been considered in the development and evaluation of the proposed new interchange.

6.3.1 Port of Tacoma Road Interchange with I-5 The interchange of Port of Tacoma Road with I-5 is located just east of the Puyallup River Bridge in the City of Fife. The existing interchange is a Once Quad Parclo B interchange and currently has problems with the current configuration including closely spaced intersections and heavy congestion. After a thorough screening process, a diamond couplet interchange was chosen as the Recommended Configuration of the revised interchange.

In the event that the revised Port of Tacoma Road Interchange with I-5 project is not constructed, traffic volumes would likely increase the effects on the East D Street interchange area.

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Operational analysis for the SR 509 East D Street Interchange Project produced acceptable results with the inclusion of the Port of Tacoma Road Interchange with I-5 project improvements. The Recommended Configuration is compatible with the Port of Tacoma Road Interchange with I-5 project access points.

The project is in the design phase and partial funding has been secured. Until additional funding is identified, construction dates will remain undetermined.

6.3.2 SR 167 Extension Program As mentioned above, the project is currently not fully funded and failure to construct the proposed SR 167 extension project will lessen the potential effects on the SR 509 East D Street interchange area.

The SR 167 extension project is a 6-mile-long, limited access highway ultimately connecting SR 509 to SR 161 and SR 167 near Puyallup. Operational analysis for the SR 509 East D Street Interchange Project, which assumed the partial completion of the SR 167 extension project by 2040, produced acceptable results for SR 509 and the East D Street interchange. In the event that the SR 167 extension and I-5/ SR 167 interchange project is not constructed, traffic volumes would likely increase the effects on the East D Street interchange area.

The project is in the final design phase and partial funding has been secured. Until additional funding is identified, construction dates will remain undetermined.

6.3.3 Tacoma/Pierce County HOV Program The state plans to implement HOV lanes along the I-5 corridor in an attempt to increase the efficiency of its road network. The goal is emphasize the movement of people and goods rather than automobiles. The Tacoma/Pierce County HOV program includes several projects in the vicinity of the SR 509 East D Street Interchange Project that have been taken into consideration. The I-5: Port of Tacoma to King County Line - HOV project began construction in fall 2009 and the lanes are now open to traffic. The I-5: Portland Avenue to Port of Tacoma Road (northbound and southbound) HOV projects are currently under active design and are fully funded. The new HOV lanes extending from Portland Avenue to the King County line will assist the Recommended Configuration because the lanes will improve traffic mobility through the area. The SR 509 East D Street Interchange Project is consistent with the Tacoma/Pierce HOV program, being accounted for in the operational models for opening year (2015) and design year (2035).

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7.0 POLICY POINT 7: COORDINATION Are all coordinating projects and actions programmed and funded?

7.1 Summary As discussed in Policy Point 1, the traffic analysis for the SR 509 East D Street Interchange Project showed that the completion of the SR 167 Extension project by year 2035 will be needed to maintain sufficient operation within the study area. Both projects, the SR 509 East D Street interchange project and the SR 167 extension, are partially funded.

7.2 SR 167 Extension Program The SR 167 extension program consists of two projects – the SR 167 extension Puyallup to SR 509 and the I-5/SR 167 interchange. A description follows of the former, which has impacts on the SR 509 East D Street Interchange Project.

The realignment and expansion of SR 167 from SR 161 to SR 509 has long been identified in the state system plan. Design and environmental work on the project has been ongoing since the 1980s and includes development of a new system interchange on I-5. A separate IJR has been developed for the SR 167 extension project (WSDOT 2007).

7.3 Project Funding Funding for the SR 509 East D Street Interchange Project currently consists of $9.5 million from the City, the Washington State Freight Mobility Strategic Investment Board (FMSIB), and commitments from the Port and BNSF. The first phase of the project is funded through design and construction. The 18-month construction of the first phase is scheduled to begin in 2014.

City of Tacoma BergerABAM, A12.0149 DRAFT SR 509 East D Street Interchange Project 20 December 2012 Tacoma, Washington Page 83 of 84

8.0 POLICY POINT 8: ENVIRONMENTAL PROCESSES What is the status of the proposal’s environmental processes?

8.1 Summary As described in Policy Point 5, the SR 509 East D Street Interchange Project has been identified as a transportation priority at the regional and local planning levels. The coordinated design and environmental planning of the Recommended Configuration have yielded a project with minor and mitigatable environmental effects. Based on the current environmental review, it is expected that this project will be classified as a Documented Categorical Exclusion (DCE).

8.2 Environmental Effects National Environmental Policy Act (NEPA) documentation for the Recommended Configuration for the new interchange of SR 509 and East D Street is ongoing. Physical, cultural, and economic elements have been considered so far, some to a greater level of completion than others. All analyses performed thus far have yielded minor and/or mitigatable effects. Therefore, it is expected that the project will be classified as a DCE. An early review of the environmental documentation process and direction to proceed with a DCE was discussed with the TAC on 14 November 2012. No opposition or further direction was offered by the group.

Permits and required approvals will be determined at the conclusion of the NEPA and State Environmental Policy Act (SEPA) reviews.

8.3 Schedule of Environmental and IJR Decision NEPA and SEPA approvals of the project are expected in spring 2013. IJR approval for the SR 509 East D Street Interchange Project is expected when the environmental permitting is complete.

City of Tacoma BergerABAM, A12.0149 DRAFT SR 509 East D Street Interchange Project 20 December 2012 Tacoma, Washington Page 84 of 84

Interchange Justification Report SR509 East D Street Interchange Project City of Tacoma, Tacoma, Washington

Appendix A A-1. Methods & Assumptions Technical Memorandum A-2. Truck Volume Methods and Forecasts Technical Memorandum A-3. VISSIM Analysis Procedures Technical Memorandum and Response to Comments A-4. Land Use Technical Memorandum

Appendix A-1 Methods & Assumptions Technical Memorandum

Appendix A-2: Truck Volume Methods and Forecasts Technical Memorandum

TECHNICAL MEMORANDUM

Project: SR 509 – East D Street IJR

Subject: Truck Volume Forecasts – Assumptions, Methods, & Results Date: September 26, 2012 Author: Tod S. McBryan, P.E.

This memorandum presents the existing truck volumes at key locations in the study area for the SR 509 – East D Street Ramps project. They are intended to validate and augment existing travel demand forecasting models developed by the project team. This memorandum the future truck volumes and the methodology applied to derive them. The forecast truck trip estimates are provided for year 2035 conditions; volumes for year 2015 are to be interpolated by Fehr & Peers.

1. Background

Travel demand forecasting models cannot accurately predict truck volumes associated with special land uses such as ports, rail hubs, and port-related warehousing uses. The demand associated with those uses is affected more by international and national trade trends as well as terminal operating characteristics than by regional population and employment. Therefore, Port of Tacoma throughput forecasts—which are based on the international and national trends—were used to estimate future truck growth for the port-related uses. Growth in non-Port trucks was forecast based on expected increases in industrial and warehouse employment. The following sections detail the existing truck volumes, and then describe the forecasting methodology and future truck volumes.

2. Existing Truck Volumes

Detailed truck counts performed in December 2006 classified trucks by purpose, instead of the typical size class. This allows the truck trips associated with the Port of Tacoma’s container terminals (trucks with shipping containers, chassis-only, or just the tractor) to be separated from all other truck traffic. The truck counts were performed for 34 key movements that enter or exit the Tideflats area for a 12- hour period. Analysis for this study focuses on the AM and PM peak hours, and truck volumes during those periods were extracted from the database. These detailed counts were supplemented with new turning movement and machine traffic counts that collected data at internal study area intersections and at locations west of the Puyallup River. Existing peak hour truck turning movement volumes were transmitted separately to the project team within a traffic operations model (Synchro) file.

SR 509 – East D Street IJR Truck Volume Forecasts – Assumptions, Methods, & Results

3. Seasonal Variation in Port Throughput

The detailed truck counts described above were performed in early December 2006. Other counts were performed in other months and years. Figure 1 shows the Port of Tacoma’s overall container throughput (in twenty-foot-equivalent units (TEUs)) by month between 2005 and 2011. As shown, December 2006 was about 13% higher than the monthly average over the past seven years. Therefore, the December 2006 volumes represent a conservatively high baseline for long-range planning and were used without a seasonal or annual adjustment.

Figure 1. Port of Tacoma Throughput – 2005 through 2011

250,000 2005 2006 Average Month (For All 7 Years) = 147,700 TEUs December 2006 = 1.13% of Average 2007 2008 200,000 2009 2010 2011

150,000

TEUs per Month 100,000

50,000

0

Sources: Port of Tacoma, "Container Volumes – 2002 to 2006.pdf," Port of Tacoma website, March 13, 2007; "Container Volumes – 2006 to 2009.pdf," Port of Tacoma website, April 20, 2009; and "Container Volumes – 2009 to 2012.pdf," Port of Tacoma website, August 25, 2012

4. Future Growth in Port-related Truck Trips

The container-terminal-related truck traffic throughout the project study area was forecast using terminal acreage projections provided by the Port of Tacoma. These were then converted to annual container throughput, which is measured in twenty-foot equivalent units (TEUs) using factors for the type of terminal and expected operation. Finally, daily and peak hour truck trips were estimated from the throughput and assigned to various routes based on expected future terminal locations and the 2006 cordon count of trucks performed for the Port of Tacoma. The assignments were supplemented with truck forecasts developed for the Puyallup Tribal Terminal (PTT) to reflect the planned throughput of that facility as well as the options for moving containers from the terminal to local rail yards. The following describes the various input assumptions and trip estimates.

- 2 - September 26, 2012 SR 509 – East D Street IJR Truck Volume Forecasts – Assumptions, Methods, & Results

4.1. Terminal Acreage

Port of Tacoma staff provided existing and future acreage estimates for all of the marine terminals.1 These are listed in Table 1.

Table 1. Port of Tacoma Terminal Acreage

Acreage Terminal Existing (2012) Year 2015 Year 2035 APMT 135 135 160 Terminal 7 76 76 76 Husky Terminal 93 93 105 Washington United Terminal (WUT) 103 103 103 Pierce County Terminal (PCT) 148 148 160 Totem Ocean Trailer Express (TOTE) 47 47 47 Puyallup Tribal Terminal (SSA) 0 0 200 EB1 22 22 100 Total 624 624 951 Source: Port of Tacoma, June 27, 2012.

4.2. Capacity Assumptions

Existing and future throughput at the Port of Tacoma were estimated based on the type of operation (whether the containers are “wheeled” or “stacked”) and the capacity of various types of equipment that can be used at each terminal. Throughput is expected to increase over time as terminals upgrade the type of operation to increase capacity. In this way, the throughput is expected to increase more than the overall terminal acreage due to increased efficiency of new equipment and operations.

Table 2. Capacity for Various Operating Characteristics

Capacity of Operating System Type of Operation Existing a Future (2015 or 2035) b Wheeled 3,000 TEUs/Acre/Year 5,000 TEUs/Acre/Year Straddle Carrier 4,000 TEUs/Acre/Year 7,000 TEUs/Acre/Year Rubber-tired Gantry (RTG) Crane Not in Use 10,000 TEUs/Acre/Year a. Estimated based on year 2006 throughput and current terminal acreage. b. Confirmed by Port of Tacoma, July 2012.

1 Port of Tacoma, Brian Mannelly, June 27, 2012.

- 3 - September 26, 2012 SR 509 – East D Street IJR Truck Volume Forecasts – Assumptions, Methods, & Results

4.3. Container Terminal Throughput

Using the acreage and operating capacities, annual throughput estimates were prepared for the years 2015 and 2035. In 2006, the entire Port of Tacoma processed about 2.07 million TEUs. By the year 2035, throughput at the Port is expected to increase to about 6.1 million TEUs per year, which represents a growth from 2006 of 3.8% per year. This growth rate is consistent with the moderate growth rates projected in the Pacific Northwest Marine Cargo Forecast Update and Rail Capacity Assessment- Final Report,2 which is suggests that container cargo volume could increase by 4.1% to per year between 2010 and 2030.

Table 3. Existing and Forecast Annual Throughput at the Port of Tacoma

Estimated Throughput (Annual TEUs) Area Terminals 2006 a 2015 2035 South & West of Blair Waterway 1,270,000 1,743,000 2,685,000 (Husky Terminal, WUT, PCT) Blair Peninsula 140,000 219,500 1,455,000 (TOTE, PTT, EB1) Along the Sitcum Waterway 660,000 738,500 1,980,000 (APMT, Terminal 7) Total 2,070,000 2,703,015 6,122,030 Annual Growth 3.0% (2006 to 2015) 3.8% (2006 to 2035) Source: Heffron Transportation, Inc. August 2012. Estimated using acreage and capacity rates for each terminal. a. Existing throughput estimated from terminal capacities. The total for all terminals equals the 2006 throughput for the entire port.

4.4. Daily Truck Trips

Detailed trip generation estimates have been prepared for past terminal planning efforts at the Port of Tacoma, as well as for infrastructure planning and analysis within the Tacoma Tideflats area. Those estimates were used to derive per-acre, truck-trip estimates for different types of operations. In the future, the percentage of international cargo that would be intermodal is expected to increase up to about 70%. Most of the international terminals at the Port have access to an on-dock or near-dock rail yard where intermodal containers are loaded directly to a train without generating truck trips on the public roadway system. However, the proposed Puyallup Tribal Terminal (SSA) on the East Blair Peninsula is likely to dray its intermodal containers to an off-dock rail yard, possibly a new intermodal yard at the existing BNSF rail yard on the Foss Peninsula near East D Street (west of the Puyallup River).3 Therefore, a higher trip generation rate was applied for that proposed terminal. The domestic carriers at the Port are assumed to have no intermodal cargo and all trips are made by truck. Table 4 presents the truck trip rates used for this analysis. The trip rates were applied to the throughput values to determine the total number of daily trips generated in 2015 and 2035. The numbers of truck trips for various areas of the Port are summarized in Table 5.

2 BST Associates, December 2011. 3 SSA Marine, SR 509/D St. Slip Ramps, RAMP Presentation April 7, 2010.

- 4 - September 26, 2012 SR 509 – East D Street IJR Truck Volume Forecasts – Assumptions, Methods, & Results

Table 4. Truck Trip Rates – Daily Trips

Existing Year 2015 and 2035 International Terminal with On-dock Rail 1.35 Truck Trips/1,000 TEUs 1.11 Truck Trips/1,000 TEUs International Terminal with Dray to Rail Yard Not Applicable 5.85 Truck Trips/1,000 TEUs Domestic Terminal 1.54 Truck Trips/1,000 TEUs 1.54 Truck Trips/1,000 TEUs Breakbulk Terminal 0.32 Truck Trips/1,000 TEUs 0.32 Truck Trips/1,000 TEUs Source: Heffron Transportation, Inc., August 2012. Derived from past studies at Port of Tacoma.

Table 5. Existing and Forecast Daily Truck Trips at the Port of Tacoma

Average Daily Truck Trips by Analysis Year Area Terminals Existing a Forecast 2015 Forecast 2035

South & West of Blair Waterway 1,500 1,940 2,980 (Husky Terminal, WUT, PCT)

Blair Peninsula 220 270 6,110 (TOTE, PTT, EB1)

Along the Sitcum Waterway 860 1,000 2,670 (APMT, Terminal 7) Total 2,580 3,210 11,760 Source: Heffron Transportation, Inc. August 2012.

The daily truck trips listed above were then assigned to the street network using information from the 2006 Cordon Truck Counts around the Port of Tacoma. Due to mitigation agreements established for the Puyallup Tribal Terminal with the City of Tacoma, the forecast for truck trips under No Action conditions reflect the required on- or near-dock rail operation while the Action alternative conditions reflect the anticipated dray from the terminal to the planned BNSF rail yard to the Foss Peninsula. The future routes also account for expected increased capacity at the Port of Tacoma Road interchange. The 2035 truck volume estimates were also adjusted to reflect future use of the planned SR 167 Extension from its current terminus to the eastern end of SR 509. Washington State Department of Transportation (WSDOT) plans for the extension include the connections to SR 509 as well as a partial interchange with 54th Avenue E and full interchange with I-5. Container-terminal related trucks destined to I-5 northbound or from I-5 southbound are the most likely to use the new extension. Table 6 summarizes the daily container-terminal-related truck trips accessing I-5 by major access route.

- 5 - September 26, 2012 SR 509 – East D Street IJR Truck Volume Forecasts – Assumptions, Methods, & Results

Table 6. Daily Truck Trips Generated by the Port of Tacoma Area Container Terminals a

Daily Port-Related Truck Trips by Route 2015 2035 Interstate 5 Access Existing (2006) (w/o SR 167) (w/ SR 167) Port of Tacoma Road North of Interstate 5 1,265 1,260 2,780 54th Avenue E North of Interstate 5 595 760 1,260 Portland Avenue North of Interstate 5 935 970 1,450 SR 167 North of Interstate 5 n/a n/a 3,360 SR 509 west of Puyallup River 180 220 2,510 70th Avenue across Interstate 5 585 610 400 Lincoln Avenue at Puyallup River 1,120 1,140 1,310 Total 3,560 3,820 11,760 Source: Heffron Transportation, Inc., August 2012. Estimated using the truck trip rates, the existing travel patterns from the 2006 Cordon Truck Count, and estimates of future truck patterns with SR 167 Extension.

5. Future Growth for Other (Non-Container) Truck Trips

There is a strong correlation between employment and truck trips for manufacturing, warehousing, and distribution land uses. The existing and future employment projections for these land use categories were reviewed for various locations to show how non-container terminal truck volumes might change in the future. Employment data for industrial-related land uses in the regional travel demand model were compiled for transportation analysis zones (TAZs) in the area. Figure 2 is a map of the TAZs in the study area showing study area TAZs 677, 668, 669, 670, and 671 (which overlap with PSRC TAZ 677). The industrial employment growth between 2007 and forecast year 2030 southwest of the Puyallup River is estimated at 0.7% per year. This rate was used to project the non-container-terminal-related truck trips in the project study area. A portion of the non-container-terminal truck trips destined to or originating from north on I-5 may also choose the SR 167 extension in the future instead of Port of Tacoma Road or 54th Avenue E. The truck assignments account for the SR 167 extension.

- 6 - September 26, 2012 SR 509 – East D Street IJR Truck Volume Forecasts – Assumptions, Methods, & Results

Figure 2. Traffic Analysis Zones (TAZs) in Tacoma Tideflats Area

Source: Transportation Analysis: Methodologies and Assumptions SR 509/East D Street Slip Ramp Project, Fehr & Peers, June 28, 2012.

6. 2035 Build Condition Peak Hour Truck Trips

The volumes of Port-related and other forecast 2035 daily truck trip occurring during the AM and PM peak hours were estimated based on the detailed truck count data available and on hourly truck trip profiles for Port terminals. Based on the Tacoma Tideflats area truck cordon counts performed in 2006, 6.3% of daily Port-related truck trips occur during the AM peak hour; 5.6% of daily Port- related truck trips occur in the PM peak hour. The planned PTT is projected to generate nearly 9% of its daily truck volume during the AM peak hour and 3% of its daily volumes during the PM peak hour. These percentages were applied to the daily volumes forecast for Port-related truck trips.

The AM and PM peak hour “other” truck trips were estimated by applying the growth rate described previously. The Port-related truck trips and “other” truck trips were combined to determine total truck trip forecasts. The total 2035 truck trips were assigned to the 2035 Build condition Synchro model provided by Fehr & Peers and transmitted to the project team.

- 7 - September 26, 2012 SR 509 – East D Street IJR Truck Volume Forecasts – Assumptions, Methods, & Results

7. 2035 No Action Peak Hour Truck Trips

The truck volumes on the study-area network would increase compared to existing conditions as Port- related activity and industrial truck trip growth would occur on the Foss Peninsula even without the D Street Ramps. However, the volume of truck traffic under No Action Conditions would be less than under the Action Condition (with the D Street ramps). This framework for forecasting the No Action truck volumes was developed cooperatively with the City of Tacoma4 and the project team. The approach acknowledges the importance of the Foss Peninsula to the overall port-area and to industrial uses in the Tideflats, while also recognizing that accessibility and east-west connections are constrained without the D Street Ramps. As a result, the comparison of No Action and Action Alternatives will reflect the expectation that the ramps will induce some additional truck trips as a result of the improved connectivity and accessibility—particularly the container dray from the PTT to the planned BNSF rail yard.

The 2035 No Action truck volumes forecasts reflect conditions without the PTT dray movement of containers to the planned BNSF rail yard site. This results in assumptions that retain 52% of the PM peak hour Port-related truck trips and 10% of the AM peak hour Port-related truck trips destined to and from the Foss Peninsula using other routes (15% using I-5, 30% using Eells Street, 30% using Lincoln Avenue, and 25% using SR 509 and Pacific Avenue). The lower percentage of AM peak hour truck trips is related to the relatively early AM peak hour (7:15 to 8:15 A.M.) and the fact that most container terminals in the area do not open until 8:00 A.M.

The total 2035 No Action truck trips were assigned to the 2035 No Action Synchro model provided by Fehr & Peers and transmitted to the project team.

TSM/tsm

SR 509-D Street IJR - Truck Volume Methods and Forecasts - DRAFT.docx

4 Conference call with Kurtic Kingsolver and Tom Rutherford, August 15, 2012.

- 8 - September 26, 2012

Appendix A-3: VSSIM Analysis Procedures Technical Memorandum and Response to Comments

MEMORANDUM

Date: July 13, 2012

To: Jilma Jimenez, BergerABAM

From: Donald Samdahl & David Stanek, Fehr & Peers

Subject: SR 509/East D Street Interchange – VISSIM Analysis Procedure SE12-0258

The purpose of this memorandum is to describe the analysis methodology procedure proposed for the VISSIM traffic simulation analysis of the State Route 509 (SR 509) / East D Street Interchange project. This memorandum supplements the Transportation Analysis: Methodologies and Assumptions memorandum dated June 29, 2012. The transportation analysis will use the Oregon VISSIM Protocol as guidance.

This memorandum addresses two of the first three deliverables from the protocol: Project Problem Statement, Data Collection Plan, and Project Methods and Assumptions Report.

PROJECT PROBLEM STATEMENT

The SR 509 / East D Street Interchange project is located in the City of Tacoma. The project proponent is the City of Tacoma with review and oversight provided by the Washington State Department of Transportation and the Federal Highways Administration. The project proposes to add a connection between East D Street and SR 509 to and from the east. The half interchange would mirror the existing half interchange located to the east at SR 509 / Portland Avenue. To the west of the proposed East D Street interchange, SR 509 is signal-controlled with a single-point diamond interchange at Interstate 705 (I-705).

The traffic analysis will determine the preferred design for the SR 509 / D Street interchange. The specific design features include the type of intersection control for the ramp terminal intersections on D Street, the location of the ramp merge and diverge points on SR 509, and the freeway configuration of SR 509 between the D Street and Portland Avenue ramps. Additionally, the effect of the interchange on traffic patterns in the surrounding freeway and arterial system will be analyzed. Given the nature of land uses near the project site, truck volumes will be a key consideration for the traffic analysis.

The project study area was recently analyzed using a VISSIM traffic simulation model as part of the Tideflats Area Transportation Study (TATS). The project traffic analysis proposes to refine this model and ensure that the application meets updated VISSIM protocols.

The traffic analysis needs to provide the following measures of effectiveness: intersection level of service (LOS) and delay; freeway segment LOS, density, and speed; and corridor travel time. Although

1001 4th Avenue, Suite 4120 Seattle, WA 98154 (206) 576-4220 Fax (206) 576-4225 www.fehrandpeers.com SR 509 / East D Street Interchange – VISSIM Analysis Procedure July 13, 2012 Page 2 of 8

intersection and freeway LOS can be determined using Highway Capacity Manual (HCM) methods, traffic simulation analysis using VISSIM overcomes the following HCM limitations.

• volume constraints due to upstream bottlenecks

• congestion caused by downstream bottlenecks

• ramp meter operations

• turn bay overflow (queues that exceed the pocket length)

• right turn on red volume and delay

The VISSIM software will be used to model the following complex features in the study area.

• the single-point diamond interchange at I-705 / SR 509

• freeway operations along I-705 and SR 509 including weaving sections and ramp merges and diverges

• ramp metering at freeway on-ramps (where applicable)

• peak period congestion that lasts longer than the peak hour

The VISUM planning software will be used to prepare refined origin-destination (O-D) patterns for the study area based on inputs from the travel demand forecasting model and the traffic counts.

STUDY AREA

Figure 1 shows the proposed study area for the VISSIM analysis. The freeway segments are I-705 from I-5 to 9th Street and SR 509 from I-705 to Portland Avenue. The I-705 freeway is included so that the proposed project’s impacts on the redistribution of traffic can be evaluated. Additionally, traffic congestion on I-705 at I-5 constrains the traffic volume that can reach SR 509 during peak periods.

The proposed study area freeway analysis segments are listed below.

I-705 Northbound

• I-5 On-ramp to SR 509 Off-ramp (Weave)

• 15th Street / A Street Off-ramp (Diverge)

• SR 509 On-ramp to Schuster Parkway (Basic)

I-705 Southbound

• 9th Street On-ramp (Merge)

• 9th Street On-ramp to 13th Street On-ramp (Basic)

• 13th Street On-ramp to SR 509 Off-ramp (Weave)

• SR 509 Off-ramp to On-ramp (Basic) SR 509 / East D Street Interchange – VISSIM Analysis Procedure July 13, 2012 Page 3 of 8

• SR 509 On-ramp to I-5 Off-ramp (Weave)

SR 509 Northbound

• Portland Avenue Off-ramp (Diverge)

• Portland Avenue Off-ramp to Port of Tacoma Road Off-ramp (Basic)

SR 509 Southbound

• Port of Tacoma Road On-ramp to Portland Avenue On-ramp (Basic)

• Portland Avenue On-ramp (Merge)

The VISSIM study area intersections include the ramp terminal intersections at the freeway interchanges in the study area and adjacent major intersections. These intersections are listed below.

1. Pacific Avenue / 21st Street

2. SR-509 / I-705 Ramps

3. D Street / Dock Street

4. Portland Avenue / SR 509 Southbound Ramp

5. Portland Avenue / SR 509 Northbound Ramp

6. Portland Avenue / Puyallup Avenue

The proposed ramp terminal intersections for the SR 509 / East D Street interchange will be included for the future build alternatives1.

STUDY PERIOD

Traffic operations will be analyzed for the weekday two-hour peak periods from 7 to 9 AM and 4 to 6 PM. The intersection and freeway analysis results will be presented for the peak hour within the peak period, but network-wide measures of effectiveness (volume served, total delay, etc.) will be collected for the two- hour peak period. A seeding time of 15 minutes will be used to pre-load the network. Volume inputs will be entered in 15-minute intervals based on the traffic counts.

DATA COLLECTION

The following data will be collected:

• Intersection peak period traffic counts (counted in early June 2012) • Traffic signal timing plans (obtained from the City of Tacoma) • Freeway mainline hourly counts on I-705 and SR 509 (obtain from WSDOT)

1 Other study intersections will be analyzed with Synchro using the HCM methodology SR 509 / East D Street Interchange – VISSIM Analysis Procedure July 13, 2012 Page 4 of 8

• Travel time runs on SR 509 between Milwaukee Ave and I-705 and on I-705 from S 9th Street to I- 5 (PM Peak only)

METHODS AND ASSUMPTIONS

The traffic operations analysis will address intersection, freeway, and ramp operations. The freeway and intersection operations analyses will be conducted using procedures and methodologies consistent with the Highway Capacity Manual 2010 (Transportation Research Board, 2011). These methodologies will be applied using the VISSIM traffic analysis software.

The existing conditions VISSIM model will be calibrated and validated to traffic counts, travel times, and observed queues. The procedures will be consistent with the Traffic Analysis Toolbox Volume III: Guidelines for Applying Traffic Microsimulation Modeling Software (FHWA, 2004). The PM peak period model will be constructed and calibrated first. The AM peak period model will be built by modifying the PM peak period model.

The default VISSIM input parameter values do not represent study-area conditions. The calibrated values in Table 1 represent field observations and our experience with similar projects. These adjustments are described below.

• The VISSIM default vehicle composition contains only standard sedans. However, a significant portion of vehicles in the study area (and most U.S. metropolitan areas) are SUVs (including light trucks). As a result, the traffic composition has been revised to reflect this condition.

• The default lane change distances in VISSIM are appropriate for most arterial roadway networks, but they do not well represent freeway conditions. The higher-speed facilities provide advanced guide signs so that drivers can anticipate turns so that they have more time to react. As a result, the lane change distance was increased from about one-eighth to one-third mile.

• The driving behavior for freeway merge areas will be modified to better model the one-to-one merging that is observed. Without these adjustments, vehicles will come to a stop in order to yield to through freeway traffic.

TABLE 1: CALIBRATION ADJUSTMENTS

Category Parameter Default Value Adjusted Value SOV/HOV Vehicle Type – Sedans 100% 45% SOV/HOV Vehicle Type – SUVs 0% 45% Vehicle Fleet Composition SOV/HOV Vehicle Type – Sports Cars 0% 10% Truck Vehicle Type – 2 Axles 0% 67% Truck Vehicle Type – 3 or More Axles 100% 33%

Freeway Off-Ramp Lane Change – Emergency Stop 16.4 ft. 50 ft. Connectors Lane Change – Lane Change per Lane 656.2 ft. 1,760 ft.

Freeway Driving Behavior Lane Change – Safety distance reduction 0.60 0.30 SR 509 / East D Street Interchange – VISSIM Analysis Procedure July 13, 2012 Page 5 of 8

for Merge Areas factor Lane Change – Max Deceleration for -9.84 ft./s2 -20.0 ft./s2 cooperative braking

Lane Change – Cooperative Lane Change Off On

Source: Fehr & Peers, 2012

During the existing conditions model validation process, additional model adjustments may be made. These adjustments will be documented in the existing conditions memorandum.

Study area travel patterns will be estimated using the TFlowFuzzy O-D estimation tool in VISUM. The base year travel demand forecasting model will provide the seed matrix for the AM and PM peak periods. The matrix values will be iteratively adjusted to match the traffic counts for the study area. The resulting O-D values will be used to route traffic through the VISSIM model network.

Intersection and ramp meter signal timing parameters will be specified using the Ring Barrier Controller (RBC) method in VISSIM. Synchro will be used to store the signal timing settings and peak hour volume information.

Control for permissive intersection movements (for example, right turns at signalized intersections or any movement unsignalized intersections) will be coded using conflict areas. For pedestrian crosswalks, conflict areas will be used to assign pedestrians the right-of-way over right- or left-turning vehicles.

The VISSIM model runs will use a simulation resolution of 10 time steps per second. The analysis results will be based on an average of ten model runs, each using a different random seed value. These seed values will be reported so that the results can be verified. For the existing conditions models, the statistical significance of ten simulation runs will be confirmed for the following model outputs using a 95 percent confidence level.

• total intersection volume at SR 509 / I-705 Ramps intersection

• northbound Portland Avenue volume between Puyallup Avenue and SR 509

• southbound Portland Avenue volume between SR 509 and Puyallup Avenue

The following assumptions will be used for developing the existing conditions traffic operations analysis model.

• Peak period traffic volumes will be entered in 15-minute intervals at the roadway network gateways. The variation in volume among the 15-minute intervals will provide sufficient variation in traffic volume such that no peak hour factor will be used.

• The counted truck volumes will be used.

• The counted pedestrian volumes will be used at study intersections.

• Speeds for the model network will be initially set based on the posted speed limit. Adjustments will be made during model calibration/validation process, if warranted. SR 509 / East D Street Interchange – VISSIM Analysis Procedure July 13, 2012 Page 6 of 8

The VISSIM model scenarios will be developed in the following order.

• Existing Conditions (2012) AM & PM

• Design Year (2035) No Build Alternative AM & PM

• Design Year (2035) Build Alternative 1 PM (If needed to determine operations)

• Design Year (2035) Build Alternative 2 PM (If needed to determine operations)

• Design Year (2035) Preferred Alternative AM

• Construction Year (2015) No Build Alternative AM & PM

• Construction Year (2015) Preferred Alternative AM & PM

The calibrated existing conditions models will be used as the basis for future conditions models. The construction and design year No Build Alternative models will be based on the respective peak period existing conditions model. The Preferred Alternative models will be built from the No Build Alternative model from the same peak period and analysis year. Up to two build alternatives models will be built for Design Year PM peak period conditions if deemed necessary to help screen the alternatives.

The methodology and assumptions for the traffic forecasts are presented in the Methods and Assumptions memo.

Traffic volume forecasts will be assigned in the VISSIM models using O-D matrices. Demand volume matrices corresponding to the study area will be extracted from the base year and cumulative year forecasting model. The difference of these matrices will be calculated. The resulting difference matrix will be added to the existing conditions O-D matrix developed for existing conditions using O-D estimation. Initial O-D pair values that are negative will be set to zero. The resulting design year matrices will be assigned to the study network, and the forecasts will be reviewed.

The following assumptions will be used for developing the future (construction and design year) conditions VISSIM models.

• For construction year (2015) conditions, no separate projects are planned in the VISSIM study area.

• For design year (2035) conditions, the traffic effects of the various planned roadway facilities (see Methods and Assumptions memo for description) will be included in all VISSIM models.

• The hourly traffic forecasts will be divided into 15-minute intervals using the ratio of existing 15- minute interval volumes to the total hourly volume.

• Existing and future truck forecasts will be included within the VISSIM model.

• Given current development patterns, pedestrian volumes are assumed to increase at rate of 1 percent per year. A minimum of 5 pedestrians per hour will be assumed at each crosswalk.

• Traffic signal timing will be optimized to serve the future traffic volumes. SR 509 / East D Street Interchange – VISSIM Analysis Procedure July 13, 2012 Page 7 of 8

The following measures of effectiveness (MOEs) will be reported.

• AM and PM peak period (2-hour) network-wide values for volume served (throughput), vehicle miles of travel, travel time, vehicle delay, and average speed

• AM and PM peak hour intersection delay, LOS, and queue length by movement.

• AM and PM peak hour freeway segment (basic, merge, diverge, and weave) density, LOS, and speed

The peak hour MOEs will be based on the peak 15 minutes of the peak hour according with the HCM definition. Intersection and freeway LOS will be assigned according to the thresholds shown in Tables 2 and 3, respectively.

TABLE 2: SIGNALIZED INTERSECTION LOS THRESHOLDS

Average Delay LOS (sec/veh) Description A < 10 Very low delay occurs with favorable progression and/or short cycle length. B > 10 to 20 Low delay occurs with good progression and/or short cycle lengths. Average delays result from fair progression and/or longer cycle lengths. Individual C > 20 to 35 cycle failures begin to appear. Longer delays occur due to a combination of unfavorable progression, long cycle D > 35 to 55 lengths, or high volume-to-capacity ratios. Many vehicles stop and individual cycle failures are noticeable. High delay values indicate poor progression, long cycle lengths, and high volume-to- E > 55 to 80 capacity ratios. Individual cycle failures are frequent occurrences. This is considered to be the limit of acceptable delay. Delays are unacceptable to most drivers due to over-saturation, poor progression, or F > 80 very long cycle lengths.

Source: Highway Capacity Manual (Transportation Research Board, 2010).

TABLE 3: FREEWAY LOS THRESHOLDS

Average Density1 Ramp Junction & LOS Basic Sections Weave Sections Description Free-flow speeds prevail. Vehicles are almost completely A < 11 < 10 unimpeded in their ability to maneuver. Free-flow speeds are maintained. The ability to maneuver with the B > 11 to 18 > 10 to 20 traffic stream is only slightly restricted. Flow with speeds at or near free-flow speeds. Freedom to C > 18 to 26 > 20 to 28 maneuver within the traffic stream is noticeably restricted, and lane SR 509 / East D Street Interchange – VISSIM Analysis Procedure July 13, 2012 Page 8 of 8

changes require more care and vigilance on the part of the driver. Speeds decline slightly with increasing flows. Freedom to maneuver D > 26 to 35 > 28 to 35 with the traffic stream is more noticeably limited, and the driver experiences reduced physical and psychological comfort. Operation at capacity. There are virtually no usable gaps within the E > 35 to 45 > 35 to 43 traffic stream, leaving little room to maneuver. Any disruption can be expected to produce a breakdown with queuing. > 45 or F v/c > 1.0 2 Represents a breakdown in flow. v/c > 1.0 2

Notes: 1. Density in vehicles per mile per lane (vpmpl). Because heavy vehicles are modeled explicitly in VISSIM, density is not converted to passenger car equivalents as used in the HCM methodology. 2. With microsimulation analysis, v/c is not directly calculated. As a result, a density of 45 vpmpl will be used as the LOS F threshold. Source: Highway Capacity Manual (Transportation Research Board, 2010).

MEMORANDUM

Date: September 28, 2012

To: Jilma Jimenez, BergerABAM

From: Donald Samdahl & David Stanek, Fehr & Peers

Subject: SR 509/East D Street Interchange – VISSIM Model Calibration and Validation SE12-0258

Fehr & Peers is preparing the traffic report for the State Route 509 (SR 509) / East D Street Interchange project in the City of Tacoma. This technical memorandum documents the existing (2012) conditions traffic operations analysis for the portion of the study area adjacent to freeways.

The SR 509 / East D Street Interchange project proposes to add ramps to SR 509 to and from the east at D Street to provide additional access to the Port of Tacoma. Figure 1 shows the study area for the VISSIM analysis. Given the roadway connections and existing travel patterns, the study area encompasses SR 509 from 21st Street to the Puyallup River, Interstate 705 (I-705) from I-5 to 9th Street, and I-5 from east of I- 705 to Portland Avenue. The ramp terminal intersections at I-705/SR 509 and SR 509/Portland Avenue are included.

This memorandum describes the development of the simulation model and calibration and validation process while also summarizing the existing conditions traffic operations analysis results.

MODEL DEVELOPMENT PROCESS

The development of the VISSIM model included three basic components: (1) setup, (2) calibration, and (3) validation. The analysis assumptions and methodology were previously described in a July 13, 2012 memorandum. The revised version of this memorandum that includes changes based on reviewer comments is attached to this memorandum.

The VISSIM model was constructed by drawing the roadway network using aerial photography as a background. The number of lanes, turning restrictions, and the location of lane additions and drops were confirmed by field observations. Intersection signal operation (i.e., cycle lengths and timing plans) were specified by the City of Tacoma. Driver behavior parameters were adjusted based on field observations. The distribution of vehicle types was also calibrated to local conditions so that the percentage of trucks matches the traffic counts.

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Since micro-simulation models like VISSIM rely on the random arrival of vehicles, multiple runs are needed to provide a reasonable level of statistical accuracy and validity. Therefore, the results of ten separate runs, starting with random seed value 1 and increasing by 1, were averaged to determine the final results. The statistical tests showing that the ten runs provide a 95 percent confidence level are shown in the attachment.

The VISSIM model was validated to PM peak hour existing conditions using the criteria suggested in Traffic Analysis Toolbox Volume III: Guidelines for Applying Traffic Microsimulation Modeling Software (FHWA, 2004). A number of iterations were required to successively adjust the default VISSIM parameters for geometrics and driver behavior until the model was validated to observed conditions.

The calibrated and validated model is used to generate performance measures that are consistent with the Highway Capacity Manual (HCM) (Transportation Research Board, 2011). The validated VISSIM model will serve as the basis for the AM peak hour existing conditions and future conditions models.

MODEL SET-UP

The model setup required the input of geometric, traffic control, and traffic flow data, each of which is described below.

Geometric Data

Roadway geometric data was gathered using aerial photographs and field observations. The lane configurations that were taken initially from aerial photographs were confirmed or revised based on field observations.

Traffic Control Data

The posted speed limits for the freeways, ramps, and local streets were collected during field observations. For signalized intersections, signal timing plans were provided by the City of Tacoma. Traffic signals are modeled as either free operation or coordinated according to the control plans specified in the controller. Traffic control at unsignalized intersections were taken from aerial photographs and confirmed during field observations.

Traffic Flow Data

Intersection traffic counts were collected in 15-minute intervals for the 7 to 9 AM and 4 to 6 PM peak periods. The AM peak counts were all from June 2012, whereas the PM peak counts included data from both June 2012 and June 2010. Freeway mainline counts for the peak periods in 2011 were provided by WSDOT. Ramp volumes at some locations used existing conditions volumes from the Tideflats Area Transportation Study which were collected in 2009. At intersections, cars and trucks were counted by turning movement. The volume of pedestrians at crosswalks was also collected. The 15-minute interval volume data was entered into the VISSIM model as gateway volumes.

SR 509 / East D Street Interchange – VISSIM Model Calibration September 28, 2012 Page 3 of 8

An origin-destination matrix was estimated for use in the VISSIM model using car and truck seed matrices derived from the EMME regional travel demand forecasting model adapted for use on this project. The seed matrices and balanced traffic counts were entered into the VISUM software. Using the origin- destination estimator in VISUM, matrices were developed for car and truck travel patterns for the AM and PM peak hours. The resulting matrices were used to route traffic through the study area network.

MODEL CALIBRATION

VISSIM build version 5.40-04 was used for the analysis. Adjustments to the VISSIM model focus on the model components related to driver behavior, driver performance, vehicle fleet mix, and vehicle performance. The following VISSIM model parameters are subject to adjustment.

• Vehicle fleet composition (passenger cars, pickup trucks, sport-utility vehicles (SUVs), HOV-lane eligible vehicles, heavy trucks, etc.)

• Vehicle headways

• Distance between stopped vehicles (standstill distance)

• Driver behavior when changing lanes

• Driver behavior at ramp junctions (i.e., weaving sections, ramp merges, etc.)

The VISSIM model calibration process started with replacing the default values with the values shown in Table 1.

TABLE 1: CALIBRATION ADJUSTMENTS

Category Parameter Default Value Adjusted Value SOV/HOV Vehicle Type – Sedans 100% 45% SOV/HOV Vehicle Type – SUVs 0% 45% Vehicle Fleet SOV/HOV Vehicle Type – Sports Cars 0% 10% Composition Truck Vehicle Type – 2 Axles 0% 67% Truck Vehicle Type – 3 or More Axles 100% 33%

Freeway Off- Lane Change – Emergency Stop 16.4 ft 50 ft Ramp Connectors Lane Change – Distance per Lane 656.2 ft 1,760 ft Lane Change – Safety distance reduction factor 0.60 0.30 Freeway Driving Behavior Lane Change – Max Deceleration for cooperative braking -9.84 ft/s2 -20.0 ft/s2 for Merge Areas Lane Change – Cooperative Lane Change Off On

Source: Fehr & Peers, 2012

The default VISSIM input parameter values do not represent study-area conditions. The calibrated values in Table 1 represent field observations and our experience with similar projects. These adjustments are described below. SR 509 / East D Street Interchange – VISSIM Model Calibration September 28, 2012 Page 4 of 8

• The VISSIM default vehicle composition contains only standard sedans. However, a substantial portion of vehicles in the study area (and most U.S. metropolitan areas) are SUVs (including light trucks). As a result, the traffic composition has been revised to reflect this condition.

• The default lane change distances in VISSIM are appropriate for most arterial roadway networks, but they do not well represent freeway conditions. The higher-speed facilities provide advanced guide signs so that drivers can anticipate turns so that they have more time to react. As a result, the lane change distance was increased from about one-eighth to one-third mile.

• The driving behavior for freeway merge areas will be modified to better model the one-to-one merging that is observed. Without these adjustments, vehicles will come to a stop in order to yield to through freeway traffic.

Further calibration refinements were made during the validation process to specific locations. The parameters affecting the capacity were adjusted so that the observed traffic conditions (speed and queuing) were replicated in the VISSIM models. Table 2 lists the fine tuning adjustments made to VISSIM model parameters for specific locations.

Adjustments were made to both peak period models (using partial routing decisions) to keep I-5 through freeway traffic in the left lanes, which replicates actual driving behavior. That is, drivers tend to stay in the left lanes to allow on-ramp traffic to merge in. The lane change distance for several off-ramps on I-5 and I-705 was changed so that exiting vehicles changed lanes far enough upstream to reach an off-ramp and so that through vehicles would avoid using auxiliary lanes.

TABLE 2: VALIDATION ADJUSTMENTS

Category Parameter Default Value Adjusted Value Freeway Off-ramp Connector from Lane Change – Distance 652.6 ft 700 ft NB I-5 to Portland Avenue

Freeway Connector for Lane Change – Distance 652.6 ft 5,000 ft NB I-5 at SR 167 Off-ramp

Freeway Off-ramp Connector from Lane Change – Distance 652.6 ft 1,000 ft NB I-5 to SR 167

Source: Fehr & Peers, 2012

SR 509 / East D Street Interchange – VISSIM Model Calibration September 28, 2012 Page 5 of 8

MODEL VALIDATION

During validation, the VISSIM model estimates are compared against observed data to measure the model’s accuracy. FHWA suggests the following validation criteria (Traffic Analysis Toolbox Volume III - Guidelines for Applying Traffic Microsimulation Modeling Software, Federal Highway Administration, 2003).

• Link volumes for more than 85 percent of cases meet the following criteria:

− For volumes less than 700 vph, within 100 vph

− For volumes between 700 and 2,700 vph, within 15 percent

− For volumes greater than 2,700, within 400 vph

• Link volumes for more than 85 percent of cases have a GEH statistic (a measure of goodness of fit) less than 5

• Sum of link volumes within 5 percent

• Sum of link volumes have a GEH statistic less than 4

• Average travel times within 15 percent (or one minute, if higher) for more than 85 percent of cases

• Individual link speeds have a visually acceptable speed-flow relationship

• Bottlenecks create visually acceptable queuing

Table 3 shows how the results for the existing conditions VISSIM models compared to the validation criteria thresholds recommended in the FHWA guidelines. The volumes for all freeway mainline, ramp links and intersection approaches meet the criteria threshold for the peak period. The overall GEH statistic is also met for the peak period. The travel times met the validation criteria and the speed-flow relationship at bottlenecks were visually inspected and found to be acceptable. As a result, the peak period model is found to be validated.

Table 4 compares the measured travel time and the modeled travel time for selected network paths during the PM peak hour.

For the PM peak period, all 6 travel time measurements are within the 15 percent validation threshold. Both the modeled and measured travel times are an average of all vehicles within the peak hour. The model shows traffic moving smoothly along SR 509 and I-705 in both directions. The only slowing that occurs is on northbound I-5 at the on-ramp from I-705 and SR 7. This is consistent with travel observations. Matching the observed travel times is not a definitive endorsement of the model’s accuracy, but instead should be used as a basis for reasonableness checking the model. Overall, the model matches the travel time amounts and patterns reasonably well.

SR 509 / East D Street Interchange – VISSIM Model Calibration September 28, 2012 Page 6 of 8

TABLE 3: VALIDATION CRITERIA THRESHOLDS COMPARISON

PM Peak Period Criteria Threshold % Met Target % Met Pass/Fail Link Volumes < 700 vph 100 vph > 85% 100% Pass Between 700 & 2,700 vph 15% > 85% 100% Pass > 2,700 vph 400 vph > 85% N/A N/A GEH Statistic 5.0 > 85% 100% Pass Sum of Link Volumes Sum of All Links 5.0% - 1.0% Pass GEH Statistic 4.0 - 1.6 Pass Travel Time Travel Paths 15% > 85% 100% Pass Visual Inspection Travel Speeds Match observations Yes Pass Queuing Match observations Yes Pass

Source: Fehr & Peers, 2012

TABLE 4: PM PEAK PERIOD TRAVEL TIME VALIDATION RESULTS

Travel Time (seconds) Percent Path Measured Modeled Difference SB I-5 at Portland Avenue On-ramp to 136 119 -12% NB I-705 at 15th Avenue / A Street Off-ramps SB I-705 at 15th Avenue / A Street On-ramps to 229 233 +2% NB I-5 at Portland Avenue Off-ramp

NB SR 509 at I-705 On-ramp to 114 118 +3% NB SR 509 at Port of Tacoma Road Off-ramp

SB SR 509 at Port of Tacoma Road On-ramp to 122 134 +10% SB SR 509 at I-705 Off-ramp

SB I-705 at SR 509 On-ramp to 97 89 -9% SB SR 7 at 38th Street Off-ramp NB SR 7 at 38th Street On-ramp to 86 93 +8% NB I-705 at SR 509 Off-ramp

Source: Fehr & Peers, 2012 SR 509 / East D Street Interchange – VISSIM Model Calibration September 28, 2012 Page 7 of 8

EXISTING CONDITIONS ANALYSIS

Using the validated VISSIM model, PM peak hour traffic operations were analyzed. Table 5 shows the LOS and average density at freeway ramp junctions and mainline sections during the PM peak hour under existing conditions. See the attachment for detailed results for all study locations.

During the peak hour, no freeway facility in the study area operates worse than LOS C. Traffic on I-705 and SR 509 in both directions flows with little impedance. The congestion at the SR 509/ I-705 ramp intersection does not interfere with freeway mainline operations. The model does show the congestion that occurs on I-5 in both directions at the I-705/SR 7 interchange. However, the queues on the southbound I-705 ramps to I-5 do not extend to the I-705 mainline.

TABLE 5: PM PEAK HOUR FREEWAY OPERATIONS RESULTS

Freeway Location Type LOS Density I-5 On-ramp to SR 509 Off-ramp Weave B 18 Northbound 15th Street / A Street Off-ramp Diverge B 17 I-705 SR 509 On-ramp to Schuster Parkway Basic C 21 9th Street On-ramp Merge C 25

9th Street On-ramp to 13th Street On-ramp Basic C 25 Southbound 13th Street On-ramp to SR 509 Off-ramp Weave C 21 I-705 SR 509 Off-ramp to On-ramp Basic B 15 SR 509 On-ramp to I-5 Off-ramp Weave B 16 I-705 Off-ramp to Portland Avenue Off-ramp Basic C 20 Northbound Portland Avenue Off-ramp Diverge C 20 SR 509 Portland Avenue Off-ramp to Port of Tacoma Road Basic B 17 Port of Tacoma Road to Portland Avenue On-ramp Basic B 17 Southbound Portland Avenue On-ramp Merge B 19 SR 509 Portland Avenue On-ramp to I-705 On-ramp Basic C 21

Note: The average density in vehicles per lane-mile for the study segment is reported. Source: Fehr & Peers, 2012

Table 6 shows the LOS and average delay at the study intersections during the PM peak hour under existing conditions. See the attachment for detailed results for all study intersections.

During the PM peak hour, two intersections operates at LOS D or worse: Pacific Avenue / 21st Street and SR 509 / I-705 Ramps. The eastbound volume on 21st Street heading for southbound I-705 backs up several blocks towards Jefferson Avenue. High volumes at the I-705 interchange lead to a high average delay. All other intersections operate at LOS C or better.

SR 509 / East D Street Interchange – VISSIM Model Calibration September 28, 2012 Page 8 of 8

TABLE 6: PM PEAK HOUR INTERSECTION OPERATIONS RESULTS

Intersection Control LOS Delay 1. Pacific Avenue / 21st Street Signal F 94 2. SR 509 / I-705 Ramps Signal D 38 3. 26th Street / I-705 Ramps Side Street Stop C 18 4. Portland Avenue / SR 509 Southbound Ramp Uncontrolled C 20 5. Portland Avenue / SR 509 Northbound Ramp Side Street Stop C 16 6. Portland Avenue / Puyallup Avenue Signal C 27 7. D Street / Dock Street Signal A 5

Note: Bold and underline indicates LOS D or greater conditions. The average delay in seconds per vehicle is reported. For side street stop and uncontrolled intersections, the LOS and delay for the worst movement is reported. Source: Fehr & Peers, 2012

Appendix A-4: Land Use Technical Memorandum

Jilma Jimenez July 25, 2012 Page 1 of 4

MEMORANDUM

Date: July 19, 2012 To: Jilma Jimenez, BergerABAM From: Bob Sicko and Will Lisska, Fehr & Peers Subject: SR 509/ East D Street Slip Ramp Project – Final Land Use

SE12-0258

This memorandum summarizes the final 2012and 2035 land use values used for the SR 509/ D Street ramps project.

Approach

As mentioned in the Methods and Assumptions document, the 2012 model base year, population and housing data are based on census tract data from the 2010 census and 2010 wage and salary data from the Washington State Employment Security Department that was provided by the PSRC. The 2010 data was factored up based on county growth in housing, population and employment between 2010 and 2012. The year 2035 land use estimates were derived by adding the assumed population and employment growth assumed in the PSRC’s Regional Growth Strategy (Vision 2040) for the Pierce County centers, unincorporated and rural area to the year 2000 population and employment data. The initial 2035 land use data was interpolated based on the growth between 2012 and 2040. The final 2035 land use forecasts at the Forecast Analysis Zone(FAZ) level were based on the 2030 Pierce County FAZ distributions.

Results

Table 1 shows 2012 and 2035 land use by FAZ. The following bullets summarize the land use growth within four generalized analysis areas, depicted in Figure 1.

• Citywide- Employment would increase 66% (+74,600 jobs), while households would increase by 74% (+55,700 housing units).

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• Port of Tacoma (includes the Dome area and Thea Foss) –Employment is expected to grow by almost 8,400 jobs. While the area consists mainly of shipping-related land uses, the area also contains the Tacoma Dome, the Sound Transit Tacoma Dome Station, and parts of the Brewery District. These non-port uses are the basis for the dramatic growth in population and households for 2035. • Tacoma Central Business District (CBD) – Population nearly doubles and households more than double in the Tacoma CBD between 2012 and 2035. Total employment increases by 71%, or 25,000 jobs. • Central Tacoma – The neighborhoods directly to the west of the CBD experience more modest growth rates compared to the other areas, but total growth includes 10,800 households and almost 9,500 jobs. • Remaining Tacoma and Ruston Neighborhoods – All together, these areas are expected to grow by almost 34,800 households and 42,900 jobs. Jilma Jimenez July 25, 2012 Page 3 of 4

Jilma Jimenez July 25, 2012 Page 4 of 4

Table 1 – Final Tacoma Land Use Forecast by FAZ

Total Employment Total Population Total Households Employment Population Households

% % % Forecasts Forecasts Forecasts Growth Growth Growth Growth Growth Growth

FAZ Location / Nearest City 2012 2035 2012 2035 2012 2035 2012 -2035 2012-2035 2012-2035 1310 Fern Hill 4,589 7,304 26,226 36,878 9,266 14,751 2,715 59% 10,652 41% 5,485 59% 1320 Lincoln 3,836 5,859 18,573 24,906 6,730 10,139 2,023 53% 6,333 34% 3,410 51% 1330 Mckinley / Portland 4,313 9,697 23,850 34,978 7,380 12,337 5,385 125% 11,128 47% 4,958 67% 1410 Orchard / Manitou 10,899 18,521 11,602 18,104 4,521 7,987 7,622 70% 6,502 56% 3,466 77% 1420 Tacoma Mall / South Tacoma 15,488 24,123 11,676 20,510 4,434 8,744 8,635 56% 8,835 76% 4,309 97% 1605 West End 6,955 10,103 17,697 21,707 7,751 10,827 3,149 45% 4,010 23% 3,076 40% 1606 Ruston / Point Defiance 2,028 3,487 12,688 18,890 5,335 8,953 1,459 72% 6,202 49% 3,619 68% 1710 Central 11,453 19,437 22,017 31,184 8,219 13,994 7,984 70% 9,166 42% 5,775 70% 1720 North Tacoma area 6,466 7,934 25,953 32,575 10,233 15,244 1,468 23% 6,623 26% 5,011 49% 1810 + Tacoma CBD 35,346 60,422 10,888 20,778 5,395 12,725 25,076 71% 9,890 91% 7,331 136% 1820 Port Of Tacoma /Dome/Thea 1900 Foss 10,297 18,653 152 5,051 64 2,893 8,356 81% 4,899 3232% 2,829 4414% 2100 Northeast Tacoma Area 1,915 2,648 15,462 30,053 5,547 11,973 734 38% 14,591 94% 6,426 116% Total 113,584 188,188 196,783 295,615 74,874 130,569 74,605 66% 98,832 50% 55,695 74%

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Interchange Justification Report SR509 East D Street Interchange Project City of Tacoma, Tacoma, Washington

Appendix B Final Technical Advisory Committee Recommendation Memorandum