access revision feasibility study · 2019-11-20 · this feasibility study is the result of...

I-5 Tacoma Mall Boulevard

Access Revision Feasibility Study FinalSeptember 2019

Tacoma Mall Boulevard Feasibility Study i

Washington State Department of Transportation Olympic Region

Olympia, Washington

WSDOT I-5 Tacoma Mall Boulevard Access Feasibility Study

September 2019

Tacoma Mall Boulevard Feasibility Study ii

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Tacoma Mall Boulevard Feasibility Study vii

Contents Acronyms and Abbreviations .................................................................................. xi Participating Project Staff and Individuals ........................................................... xiii Executive Summary ................................................................................................. xv

Background and History ................................................................................. xv

Study Purpose and Need Statement ............................................................. xvi

Alternatives Considered and Screened ......................................................... xvi

Study Recommendation ................................................................................. xvi

Future Study and Next Steps ........................................................................ xvii

Chapter 1 Project Background ......................................................................... 1-1

1.1 Background and History ..................................................................... 1-1

1.2 Study Area and Vicinity ...................................................................... 1-1

1.3 Purpose and Need ............................................................................. 1-3

1.4 Planning and Policy Context .............................................................. 1-4

1.5 Interstate Access Process .................................................................. 1-8

1.6 Multimodal Needs............................................................................... 1-8

1.7 Key Stakeholder Outreach ............................................................... 1-10

Chapter 2 Existing Transportation Conditions ............................................... 2-1

2.1 Origin-Destination Data ...................................................................... 2-1

2.2 Existing Intersection Operations ......................................................... 2-1

2.3 Existing Freeway Operations ............................................................. 2-2

2.4 Existing Crash Statistics ................................................................... 2-13

2.5 Pedestrian and Bicycle Facilities ...................................................... 2-15

2.6 Bus Transit Operations/Service ........................................................ 2-17

Chapter 3 Future Conditions ............................................................................ 3-1

3.1 Baseline 2040 Roadway Network ...................................................... 3-1

3.2 Demand Model Forecasting ............................................................... 3-2

3.3 Baseline Intersection Operations ....................................................... 3-2

3.4 Baseline Freeway Operations ............................................................ 3-3

3.5 Summary of Deficiencies.................................................................... 3-4

Contents

Tacoma Mall Boulevard Feasibility Study viii

Chapter 4 Alternatives Analysis ....................................................................... 4-1

4.1 Study Purpose and Need ................................................................... 4-1

4.2 Approach for Developing and Evaluating Strategies and Options ..... 4-1

Chapter 5 Preferred Strategy and Next Steps ................................................. 5-1

5.1 Preferred Strategy Recommendation ................................................. 5-1

5.2 Optional Strategy for Consideration ................................................... 5-3

5.3 Next Steps .......................................................................................... 5-3

Chapter 6 References ....................................................................................... 6-1

Appendices A Policy and Data Context Memorandum B Methods and Assumptions Memorandum C Data Inventory and Gaps Memorandum D Existing and Future Baseline Transportation Operations Analysis Memorandum E Environmental Scan F Public Outreach Summary G Travel Demand Model Documentation H Alternatives Development and Screening Process Memorandum I Level 2 Evaluation of Options Memorandum J Level 3 Evaluation of Options Memorandum

Exhibits Exhibit ES-1. Related Planning Documents ................................................................................ xv Exhibit ES-2. Recommended Strategy ...................................................................................... xvii Exhibit 1-1. Tacoma Mall Neighborhood Subarea Plan Study Area .......................................... 1-2 Exhibit 1-2. Study Area Intersections ......................................................................................... 1-3 Exhibit 1-3. Planning and Policy Documents ............................................................................. 1-6 Exhibit 1-4. WSDOT Interstate Access Revision Process Chart ............................................... 1-9 Exhibit 2-1. Origin-Destination Data Collection Area ................................................................. 2-1 Exhibit 2-2. Existing (2018) Intersection Volumes ..................................................................... 2-3 Exhibit 2-3. Existing (2018) Intersection Volumes (continued) .................................................. 2-5 Exhibit 2-4. Existing (2018) PM Peak Hour Freeway Analysis: I-5, Milepost 129.83 to 133.85 . 2-7 Exhibit 2-5. Existing (2018) PM Peak Hour Freeway Analysis: SR 16, Milepost 0 to 1.69 ........ 2-9 Exhibit 2-6. Existing (2018) PM Peak Hour Freeway Analysis: I-5 Collector Distributor,

Milepost 0.42 to 1.53 ............................................................................................ 2-11 Exhibit 2-7. Crashes by Severity in the Study Area, 2013-2018 .............................................. 2-13 Exhibit 2-8. Crashes by Type in the Study Area, 2013-2018 ................................................... 2-14 Exhibit 2-9. Pedestrian and Bicycle Crashes (2013-2018) ...................................................... 2-16 Exhibit 2-10. Study Area Bus Transit Routes ........................................................................... 2-17 Exhibit 3-1. Future Year (2040) Transportation Network Updates ............................................. 3-1 Exhibit 3-2. Existing Year (2018) and Future Year (2040) Household and Employment

Summary ................................................................................................................ 3-2 Exhibit 3-3. Existing (2018) and Baseline (2040) PM Peak Hour Intersection Volumes ............ 3-5

Contents

ix

Exhibit 3-4. Existing (2018) and Baseline (2040) PM Peak Hour Intersection Volumes (continued) .............................................................................................................. 3-7

Exhibit 3-5. Existing (2018) and Baseline (2040) PM Peak Hour Freeway Analysis: I-5, Milepost 129.83 to 133.85....................................................................................... 3-9

Exhibit 3-6. Existing (2018) and Baseline (2040) PM Peak Hour Freeway Analysis: SR 16, Milepost 0 to 1.69 ................................................................................................. 3-11

Exhibit 3-7. Existing (2018) and Baseline (2040) PM Peak Hour Freeway Analysis: I-5 Collector Distributor, Milepost 0.42 to 1.53 ........................................................... 3-13

Exhibit 4-1. Three-Level Evaluation and Screening Approach .................................................. 4-1 Exhibit 4-2. Description of Strategies for Level 1 Evaluation ..................................................... 4-2 Exhibit 4-3. Map of Level 1 Strategies ....................................................................................... 4-4 Exhibit 4-4. Options for Level 2 Evaluation ................................................................................ 4-6 Exhibit 4-5. Map of Level 2 Strategies ....................................................................................... 4-7 Exhibit 4-6. Options for Level 3 Evaluation ................................................................................ 4-8 Exhibit 4-7. Map of Level 3 Strategies ....................................................................................... 4-9 Exhibit 5-1. Steps in Practical Solutions Approach Completed by Study ................................... 5-1 Exhibit 5-2. Preferred Strategy for I-5/Tacoma Mall Boulevard Access ..................................... 5-2 Exhibit 5-3. Next Steps in Practical Solutions Approach ............................................................ 5-3

Contents

Tacoma Mall Boulevard Feasibility Study x


Tacoma Mall Boulevard Feasibility Study xi

Acronyms and Abbreviations ARR Access Revision Report

CD collector-distributor

CFR Code of Federal Regulations

FHWA Federal Highway Administration

HOV high-occupancy vehicle

I-5 Interstate 5

LOS level of service

NEPA National Environmental Policy Act

PDO property damage only

PSRC Puget Sound Regional Council

SEPA State Environmental Policy Act

SRMP State Route Milepost

TCC Tacoma Community College

TSMO Transportation System Management and Operations

WSDOT Washington State Department of Transportation

Acronyms and Abbreviations

Tacoma Mall Boulevard Feasibility Study xii


Tacoma Mall Boulevard Feasibility Study xiii

Participating Project Staff and Individuals The following individuals participated in the project team to evaluate feasibility of the Tacoma Mall Boulevard Project.

City of Tacoma Dana Brown Elliott Barnett Mazedur Hossain Josh Diekmann

Tacoma Fire Department Allen Estes Todd Magliocca

Pierce Transit Max Henkle Jason Kennedy Darin Stavish

Federal Highway Administration Dean Moberg Lindsey Handel

WSDOT Cliff Hall LeRoy Patterson Scott Zeller

WSDOT Olympic Region, Traffic Operations

Kumiko Izawa Joe Perez

WSDOT Olympic Region, Transportation Planning Dennis Engel Matthew Pahs Forest Sutmiller

Participating Project Staff and Individuals

Tacoma Mall Boulevard Feasibility Study xiv


Tacoma Mall Boulevard Feasibility Study xv

Executive Summary Background and History This feasibility study is the result of coordinated efforts between the Washington State Department of Transportation (WSDOT), City of Tacoma, and the Federal Highway Administration (FHWA) for improving access to the Tacoma Mall Neighborhood, which was designated as a Regional Growth Center by the Puget Sound Regional Council (PSRC). This study has been completed in compliance with Section 550 of the WSDOT Design Manual (WSDOT, 2019a), which is based on FHWA policy, and is the incremental next step in investment and infrastructure planning to support the Tacoma Mall Neighborhood Subarea Plan (City of Tacoma, 2018a), which also builds on past studies of freeway facilities. Related documents that provide context for this study are shown in Exhibit ES-1.

Exhibit ES-1. Related Planning Documents

2001 Tacoma Mall Direct

Access Feasibility

Study

Described freeway access modifications that could help address recurring congestion and address future growth

2009 PSRC Vision 2040

Defines a regional strategy for growth in Puget Sound including targeting growth

in the Tacoma Mall Neighborhood Regional

Growth Center

2018 Tacoma Mall

Neighborhood Plan

Links planned growth in this regional center and shapes it into a neighborhood plan with transportation strategies and refined land use

WSDOT Design Manual, Section

550

Defines the statewide approach for revising or

modifying freeway access

2017 Revised Federal

Highway AdministrationAccess Policy

Updated in 2017, this policy guides the statewide approach to access modifications

Executive Summary

Tacoma Mall Boulevard Feasibility Study xvi

Study Purpose and Need Statement To chart a course for this study and provide a guide for the future, agency stakeholder partners agreed that the project purpose should be to analyze transportation access to and from Interstate 5 (I‐5) and the 575‐acre Tacoma Mall Regional Growth Center. The goal of this study, aligned with the requirements of WSDOT’s Practical Solutions guidance (https://www.wsdot.wa.gov/about/practical-solutions), is to develop a set of solutions that:

• Manage congestion, reduce crash potential, and decrease queues on South 38th Street and South Steele Street between I‐5 and Tacoma Mall Boulevard

• Support future land use projections forecasted in the Regional Growth Center to help ensure that the growth targets, vision, and other objectives of the Tacoma Mall Neighborhood Subarea Plan are achieved

• Improve travel reliability for all vehicles on the I‐5 mainline within the Tacoma Mall study area

• Integrate modal travel choices consistent with planned projects in the subarea plan, including pedestrian, bicycle, and transit improvements

• Support regional growth objectives and policies (Vision 2050 [PSRC, 2019], Transportation 2040 [PSRC, 2010], and the Growth Management Act) focused on investments to increase multimodal transportation options that serve designated Regional Growth Centers

This study defined strategies that will fulfill three specific needs related to congestion, accommodating growth, and providing mobility needs.

Alternatives Considered and Screened Through a rigorous analytical approach and with stakeholder partners, the project team defined a broad range of over 30 strategies to meet this need. The evaluation and screening approach included consideration of multimodal strategies and WSDOT’s Practical Solutions process, which requires consideration of cost-effective strategies that balance the goals of state and local needs while engaging the public in the decision process. These strategies were evaluated and screened down to a single preferred strategy using future travel data as well as feedback from the public at two open house meetings. This study meets the requirements of Section 550 of the WSDOT Design Manual for Access Revision Report, and recommends that a modification of access should move forward.

Study Recommendation The result and recommendation of this study is to continue development and analysis of a bifurcation of the existing southbound off-ramp from Southbound Interstate 5 (I-5) connecting to Tacoma Mall Boulevard to better distribute trips to the subarea. This strategy was viewed favorably by the public at an open house on August 20, 2019, because it distributes vehicle trips destined to the mall away from the South 38th Street and South Steele Street intersection. The strategy performed well against the study evaluation criteria based on technical analysis, and is the policy recommendation of the Tacoma Mall Neighborhood Subarea Plan. A graphical representation of the recommended strategy is shown in Exhibit ES-2.

Stakeholders also recommended continuing consideration of some aspects of an alternative strategy that includes an on-ramp to I-5 southbound from Tacoma Mall Boulevard near South 48th Street.

https://www.wsdot.wa.gov/about/practical-solutions

Executive Summary

Tacoma Mall Boulevard Feasibility Study xvii

Exhibit ES-2. Recommended Strategy

Future Study and Next Steps While continuing future analysis of the recommended southbound off-ramp bifurcation strategy is currently unfunded, future study and development of a strategy would need to address environmental constraints as the design advances. Design refinements will be part of the Access Revision Report process.

The recommended consideration of a southbound on-ramp to I-5 from Tacoma Mall Boulevard north of South 48th Street is also not currently funded.

Carrying the recommended strategy and consideration forward to implementation would include the following steps:

• Complete an Access Revision Report to meet Section 550 of the WSDOT Design Manual

• Continue Design

• Complete Environmental Review

• Purchase Right of Way

Executive Summary

Tacoma Mall Boulevard Feasibility Study xviii


Tacoma Mall Boulevard Feasibility Study 1-1

Chapter 1 Project Background 1.1 Background and History In 2017, the Washington State Legislature identified funding for a study of potential access modifications to I-5 near the Tacoma Mall between South 38th Street and South 56th Street. This study was intended to build on past planning studies and support the Tacoma Mall Neighborhood Subarea, a designated Regional Growth Center. The City of Tacoma also completed a subarea neighborhood plan in 2018 that identified potential land use changes and infrastructure to support that targeted growth. The identified infrastructure includes improvements for pedestrians, bicycles, and transit to promote a lower drive-alone (single-occupant vehicle) share of trips. The plan also identified a new off-ramp from the southbound I-5 collector-distributor as a top priority transportation system improvement that would help distribute trips throughout the neighborhood area and reduce high-volume intersections, specifically South 38th Street at South Steele Street, which is currently the main entrance to the Tacoma Mall. The City also completed an up-front, in-depth environmental analysis of planned growth under the Tacoma Mall Neighborhood Subarea Plan (City of Tacoma, 2018a) and concluded that an I-5 access improvement is a critical mitigation action. Reducing vehicular demand at this location also allows the City to realize other goals in the study area, specifically improving pedestrian circulation along and across South 38th Street. Modifications of access to I-5, however, would require coordination and approval of FHWA because it oversees the Interstate system.

This study follows FHWA and WSDOT guidance for consideration of revisions and modifications to Interstate access. The study also follows the state project development approach known as Practical Solutions (https://www.wsdot.wa.gov/about/practical-solutions). This approach encourages system performance management through cost-effective operational improvements first, by considering demand management opportunities second, and after exhausting other options, by considering capacity expansion. Using the Practical Solutions approach and community input, policy change and local network improvements were considered before capacity investment strategies.

1.2 Study Area and Vicinity The study area includes several retail areas developed around I-5. Over time the neighborhood has grown into an urban area with a mix of uses including residential, commercial, and light industrial that are anchored by the Tacoma Mall, a regional retail destination. In general, the neighborhood is bounded by South Tacoma Way to the west and north, I-5 to the east, and South 47th Street and South 48th Street to the south.

The study area includes the same area defined in the Tacoma Mall Neighborhood Subarea Plan, which is shown in Exhibit 1-1. The study area also includes the freeway segments of I-5 that serve the South 38th Street interchange and South 56th Street. Exhibit 1-2 shows the 25 intersections in the study area that were evaluated in this study.

https://www.wsdot.wa.gov/about/practical-solutions

Chapter 1. Project Background


Exhibit 1-1. Tacoma Mall Neighborhood Subarea Plan Study Area



Exhibit 1-2. Study Area Intersections

1.3 Purpose and Need As part of a Practical Solutions approach, a purpose and need statement was defined early in the study and agreed to broadly by key stakeholders. The purpose and need formed the basis of the problem statement for the study and was used to evaluate strategies and solutions.

1.3.1 Purpose The purpose of the Tacoma Mall Boulevard Access Feasibility Study is to analyze transportation access to and from I‐5 and the 575‐acre Tacoma Mall Regional Growth Center. The study, aligned with the requirements of WSDOT’s Practical Solutions guidance, is expected to develop a set of solutions that:



• Manage congestion, reduce crash potential, and decrease queues on South 38th Street and Steele Street between I‐5 and Tacoma Mall Boulevard

• Support future land use projections forecasted in the Regional Growth Center to help ensure that the growth targets, vision, and other objectives of the Tacoma Mall Neighborhood Subarea Plan are achieved

• Improve travel reliability for all vehicles on the I‐5 mainline within the Tacoma Mall study area

• Integrate modal travel choices consistent with planned projects in the subarea plan, including pedestrian, bicycle, and transit improvements

• Support regional growth objectives and policies (Vision 2050, Transportation 2040, and Growth Management Act) focused on investments to increase multimodal transportation options that serve designated Regional Growth Centers.

1.3.2 Need The City of Tacoma adopted the Tacoma Mall Neighborhood Subarea Plan to support planned major growth in this regional growth center. Specifically, the Subarea Plan designates both South Steele Street and South 38th Street as high-priority multimodal facilities, increases local and regional transit services, and defines Tacoma Mall Boulevard as a Complete Street‐Transit Priority. Additionally, South 38th Street is a designated Complete Street‐Avenue Typology and Steele Street is part of the signature multimodal internal Loop Road. Currently, there is limited and circuitous access, inadequate multimodal facilities, and frequent peak congestion in the area. Study needs are as follows:

• Congestion: Reduce recurring weekday PM peak period congestion along the South 38th Street corridor, including a current level of service (LOS) E signalized intersection at South Steele Street, LOS D at South Pine Street, and LOS F at South Fife Street.

• Growth: Accommodate the adopted regional growth targets of this subarea aligned with the State Growth Management Act and the City of Tacoma comprehensive plan, which includes a coordinated package of infrastructure, land use and zoning, and programmatic strategies. This planned growth will increase travel in the study area, increase the demand on the regional transportation system, and necessitate mode shift and internal trip capture strategies.

• Mobility: Meet the needs of the Tacoma Mall Neighborhood Regional Growth Center by supporting connectivity and access, economic development, active transportation, a healthy environment, safety, and sustainability.

1.4 Planning and Policy Context As part of the Practical Solutions approach for infrastructure decisions, a summary was compiled of background planning and policies with influence on the decision. These policies and plans were linked to the evaluation of strategies. Specifically, strategies and solutions were assessed against these plans and policies for consistency and to compare how the results could advance policy and plan goals and objectives.

I-5 provides for the movement of people and goods for regional and interstate connections along the west coast of the United States. Within Tacoma, I-5 supports regional transportation for commuters and local land uses, which include both residential and industrial/port uses. WSDOT and partner stakeholders have studied I-5 access for the Tacoma Mall Neighborhood



Subarea since 2001. One study identified an access modification at South 38th Street to connect with Tacoma Mall Boulevard (WSDOT, 2001). In 2018, the City of Tacoma completed a Tacoma Mall Neighborhood Subarea Plan consistent with the Comprehensive Plan (City of Tacoma, 2019) to evaluate rezoning land use. The Subarea Plan identified the need for additional access from I-5 southbound via a new ramp to Tacoma Mall Boulevard as part of the South 38th Street interchange.

As part of the development of the Tacoma Mall Neighborhood Subarea Plan several agencies and stakeholders have been engaged in planning transportation and land use. In addition to WSDOT and the City of Tacoma, agencies that have provided relevant data and information include PSRC, Pierce County, Pierce Transit, Intercity Transit, and Sound Transit. The sections below provide a summary of documents and data collected from these existing sources.

1.4.1 Planning and Policy Documents Planning documents relevant to this study are summarized in Exhibit 1-3 below and in the Policy and Data Context memorandum (Appendix A).



Exhibit 1-3. Planning and Policy Documents Date Title Author Description Relevance to WSDOT I-5 Tacoma Mall Study

1999 & 2012

I-5 Pierce County Tacoma High-Occupancy Vehicle Access Point Decision Report and Supplemental Interchange Justification Report

WSDOT Interchange Justification Report addressed FHWA’s 8 policy point requirements for modifications to access on an Interstate.

Supports access modifications on I-5 as part of the HOV plan improvements.

2001 Tacoma Mall Direct Access Feasibility Study

WSDOT Feasibility study with input from FHWA, WSDOT, the City of Tacoma, and local landowners regarding access options to address recurring congestion and operations for the I-5 southbound off ramp in the vicinity of South 38th Street

Study considered a range of access and non-access improvements, presented options to the public, and recommended an option for the new southbound off-ramp.

2009 Transportation 2040 PSRC Defines the regional land use and transportation vision to accommodate growth, including policy goals for equity, access, technology, and environment/climate. Identifies Regional Growth and Manufacturing Industrial Centers and long -range transportation system needs.

Describes the regional growth centers, specifically Tacoma Mall, and the vision for serving these dense centers with transit and other alternative modes.

2013 Regional Centers Monitoring Report PSRC Status and summary of progress for the regional growth centers identified by PSRC.

Describes growth and progress toward greater density in these designated centers including Tacoma Mall.

2015 Pierce County Comprehensive Plan and Community Plans

Pierce County

The plan defines a vision for long term land use and infrastructure needs for unincorporated areas of Pierce County. This plan also identifies performance measures for arterials. The county regularly updates community plans including Parkland, Spanaway, Midland, and Mid-County subareas.

Identifies other background infrastructure investments and modal priorities in the unincorporated.

2016 Sound Transit 3 Plan Sound Transit

Identifies a list of funded regional investments including the West Seattle Link Extension and Ballard Link Extension light rail. Provides forecasts of cost and ridership.

Defines a plan of funded improvements including the extension of Sounder commuter rail south of the study area station (South 56th Street and South Tacoma Way), increasing ridership on commuter rail.

2016 Destination 2040 - Pierce Transit Long Range Plan

Pierce Transit

Provides a vision and long-range plan for Pierce Transit to meet emerging needs including changes in land use, demographics, and technology. Defines four options for meeting future needs.

Defines increased transit service in the Tacoma Mall Neighborhood Subarea.

2017 HOV Feasibility Study I-5: JBLM to South 38th Street

WSDOT Feasibility study of completing HOV lanes between the I-5 Tacoma Pierce County HOV and I-5 JBLM projects. Defines a preferred option for HOV continuation for future development.

Defines a future baseline configuration for I-5 between South 38th Street and the JBLM project.

2017 WSDOT Mobility Performance Framework

WSDOT As part of a practical design approach, framework of quantifiable mobility performance measures that can be used to evaluate strategies.

Provides a menu of potential performance measures.



Exhibit 1-3. Planning and Policy Documents Date Title Author Description Relevance to WSDOT I-5 Tacoma Mall Study

2018 Tacoma Mall Neighborhood Subarea Plan (Draft and Final) including appendices and Environmental Documents

City of Tacoma

Describes a land use and infrastructure strategy supporting a regional growth center with targeted growth within the city of Tacoma. Specific strategy includes changes in transportation modal use of public right-of-way to promote health and environment objectives.

Identifies changes to South 38th Street and I-5 ramp as priority projects for achieving plan objectives.

2018 Six Year Comprehensive Transportation Program, Amended 2018 and 2019-2024

City of Tacoma

Identifies near-term infrastructure investments and funding. Identifies funding for the Tacoma Mall I-5 Access.

2018 Pierce Transit - Transit Development Plan

Pierce Transit

Provides an overview of the Pierce Transit organization and progress. Provides data on use and ridership and describes near-term investments. Specifically includes the Tacoma Mall Transit Center.

Provides a baseline of transit investments in the study area.

2019 Design Manual WSDOT Specifically, Chapters 550 related to Freeway Access Revision and 1100 related to Practical Design.

Provides structure for decision making in consideration of new or revised access and requirements of Practical Solutions.

2019 One Tacoma: Comprehensive Plan including Transportation Master Plan

City of Tacoma

One Tacoma is the City's comprehensive plan guiding development aligned with the community vision. The plan guides decisions on land use, transportation, housing, capital facilities, parks, and the environment. It also sets standards for roads and other infrastructure, identifies how they will be paid for, and establishes the basis for zoning and development regulations. Includes modal plans for transit and streetcar, pedestrians, bikes, freight, and autos.

The plan also includes systemwide performance monitoring and measures.

Within the subarea, the plan defines priority networks for all modes including:

- South Tacoma Way for a regional trail

- South Pine Street, South Tacoma Way, South 35th Street, South 47th/48th Street as bike priority

- South Steele Street, South Pine Street, South Tacoma Way, South 38th Street, and Tacoma Mall Boulevard for autos

- South Tacoma Way and I-5 for freight

- Union Avenue, South Pine Street, and South 47th or 48th Street for streetcar

Ongoing WSDOT Corridor Sketch Initiative WSDOT Baseline programmatic write-up of state facilities including users, current operations, and plans.

Limited relevance with other design and planning studies.

Ongoing Sounder South Capacity Expansion Sound Transit

Study of changes to the Sounder commuter rail in the south Puget Sound including the planned extension south of Lakewood to DuPont using BNSF tracks.

Identifies potential expansion of commuter rail south including ridership growth.

HOV = high-occupancy vehicle



1.5 Interstate Access Process A formal process for considering options to add, modify, or revise access to the Interstate system was developed by FHWA as specified in 23 United States Code Title 23 Sections 109 and 111, Code of Federal Regulations (CFR) Title 23 Section 625.4, and 49 CFR 1.48(b)(1)), updated in May 2017 (https://www.fhwa.dot.gov/programadmin/fraccess.cfm).

The May 2017 change in policy directs FHWA to evaluate Interstate access requests by relying on the National Environmental Policy Act (NEPA) process to account for the social, economic, and environmental impacts associated with the change in access, and a separate technical report on the safety, operations, and engineering acceptability. WSDOT, in Chapter 550 of its Design Manual that guides freeway access revision, has updated its policies and procedures to match federal policy (WSDOT, 2019a). WSDOT’s Design Manual Chapter 550 outlines a methodical process for defining the need for an access revision to the limited-access Interstate system (https://www.wsdot.wa.gov/publications/manuals/fulltext/M22-01/550.pdf).

This access revision process, shown on Exhibit 1-4, is the intentional process of first defining a transportation performance gap and then considering improvements and solutions that could meet the need without a break in access. If it is not possible to address the performance gap with local options and a break in access would meet the gap, then an Access Revision Report (ARR) would move forward. This report documents the process to this decision point.

In addition to the access revision process, WSDOT is committed to context-appropriate, multimodal, performance-based designs. WSDOT’s Practical Design and Practical Solutions procedures, under the WSDOT Design Manual Chapter 1100, promote community engagement and decision making using a stakeholder advisory committee.

1.6 Multimodal Needs The Practical Solutions planning approach requires consideration of all modes of travel as part of evaluation and screening of strategies. As part of this study, the strategies considered included alternatives to auto and public transportation/transit. The initial strategies identified for this study included those from City of Tacoma and regional plans, specifically the Tacoma Mall Neighborhood Subarea Plan (2018a); Sound Transit’s Long-Range Plan (2014), ST2 (2008), and ST3 (2015); Pierce Transit’s Long Range Plan (2016); and PSRC’s long-range plans, which include the identification of regional growth centers. All of these plans identify potential investments in the study area that support the project purpose and need.

https://www.fhwa.dot.gov/programadmin/fraccess.cfm

https://www.wsdot.wa.gov/publications/manuals/fulltext/M22-01/550.pdf



Exhibit 1-4. WSDOT Interstate Access Revision Process Chart

Source: WSDOT Design Manual Chapter 550 (WSDOT, 2019a)



1.7 Key Stakeholder Outreach Key stakeholders with an interest or authority over access decisions were invited to participate in a Stakeholder Advisory Committee. Stakeholders represented different technical and policy perspectives of WSDOT, FHWA, City of Tacoma, Pierce Transit, and local property owners. This stakeholder advisory committee met four times during the Access Feasibility Study phase of the project and concurred on the recommendations described in this report. The four Stakeholder Advisory Committee meetings, all held in 2019 and 2 hours each, were held at the City of Tacoma offices with general topics as noted below:

• February 21 – Introductions, review of methods, and purpose and need

• March 21 – Define evaluation process, review range of strategies and initial screening, and prepare for public meeting

• June 26 – Review public comments; evaluate and screen strategies

• July 31 – Review recommendations and prepare for public meeting

Throughout the project, the public was informed about study progress on the WSDOT project website (https://www.wsdot.wa.gov/planning/studies/i5/tacoma-mall-boulevard/home). Additionally, the general public was invited to participate in the process through two public meetings in open house format. The first was held on April 25, 2019, to introduce a range of strategies, and more than 20 people attended. The second was held on August 20, 2019, to show the study recommendations and was attended by 19 people.

An online open house and public survey were also developed to collect feedback from the community on different strategies. The survey was available to the public for one week prior to and one week after the first in-person open house. A total of 105 survey responses were collected. This public feedback was used to inform the evaluation and recommendations of a preferred strategy. For the second open house, feedback and comments were addressed in-person instead of through an online survey.

Both public meetings were broadly advertised through WSDOT and City of Tacoma outreach channels online. The meetings were held near the study area. A summary of outreach for both public meetings is provided in Appendix F. In addition to the general public and the Stakeholder Advisory Committee, the City of Tacoma Transportation Commission was briefed on the project status on the following dates:

• May 15, 2019 • July 17, 2019

The City of Tacoma Transportation Commission advises the City Council on transportation-related matters such as short-term and long-range transportation planning; compliance with local, regional, and federal transportation regulations; bike, pedestrian, and mass transit related planning; parking; and capital improvements.

https://www.wsdot.wa.gov/planning/studies/i5/tacoma-mall-boulevard/home


Chapter 2 Existing Transportation Conditions This chapter describes the existing travel patterns, transportation facilities, and safety and operating conditions for intersections and freeways within the study area.

2.1 Origin-Destination Data Travel patterns into and out of the study area were analyzed using existing origin-destination data provided by the traffic data vendor StreetLight Data, Inc. StreetLight Data collects data from anonymous connected devices (such as cell phones, GPS navigation apps, and connected cars) to determine travel patterns for a user-specified area.

StreetLight data were collected for key traffic analysis zones (a geographic area or collection of land uses) and points (a specific location on a street that vehicles pass when traveling to or from a zone) in the study area to help understand existing travel patterns. Zones and points can both serve as origins and destinations for trips. An example of the zone and point structure for this study is shown in Exhibit 2-1.

During the PM peak hour, approximately 24 percent of vehicle trips enter the study area from the north on local streets, and 23 percent of vehicle trips enter on local streets from the south. Approximately 22 percent of trips entering the study area originate on I-5.

Leaving the study area, vehicle trips are generally distributed in the same proportions: roughly 24 percent travel north on local roadways, and approximately 26 percent head south on local streets. Approximately 24 percent of trips during the evening peak hour leave the study area via I-5. Further information may be found in Appendix D, the Existing and Future Baseline Traffic Operations memorandum.

2.2 Existing Intersection Operations The 25 study area intersections include ramp terminals and intersections within an influence area of the Tacoma Mall study area. Study intersections were identified by the project team and confirmed by WSDOT. Intersection operations were analyzed using Synchro (version 10), and results were reported using the Highway Capacity Manual 2010 methodology wherever

Exhibit 2-1. Origin-Destination Data Collection Area

N

Chapter 2. Existing Transportation Conditions


possible. Due to limitations in this methodology, specific signal timing, lane channelization, or vehicle movements cannot be analyzed. In these cases, the Highway Capacity Manual 2000 methodology was used to report delay and LOS results.

Intersection turning movement data were collected on typical Tuesdays and Wednesdays in November 2018. Supplemental counts were also obtained from the City of Tacoma and WSDOT. Based on these counts, all but three study intersections currently perform better than the agency LOS standard. The standard for intersections under WSDOT jurisdiction is LOS D, while intersections under City of Tacoma jurisdiction have a standard of LOS E.

Three study intersections currently operating at the LOS standard include South Union Avenue at the SR 16 westbound ramps, South 38th Street at South Steele Street, and Tacoma Mall Boulevard at South 56th Street/I-5 southbound on-ramp. Exhibits 2-2 and 2-3 present existing PM peak hour intersection LOS results. For more detailed results, see Appendix D, the Existing and Future Baseline Traffic Operations memorandum.

2.3 Existing Freeway Operations The existing freeway operations were analyzed for I-5 between Yakima Avenue and South 56th Street, for SR 16 between I-5 and South Tyler Street, and for the I-5 southbound/South 38th Street collector-distributor.

Traffic operations for all freeway mainline, merge, diverge, and weaving segments within the study area were analyzed using the Highway Capacity Software and are based on the Highway Capacity Manual 2010 freeway capacity models. Roadway volume data analyzed were collected from tube counts taken in November 2018, WSDOT’s permanent traffic recorders, and WSDOT’s short-duration traffic counts recorded between November 2014 and November 2018.

The I-5 mainline within the study area was under construction as part of the Tacoma/Pierce County HOV program when freeway volume data were collected in 2018. Construction activities have been ongoing throughout the area since 2001 and will result in continuous HOV lanes on I-5 and SR 16 along with other safety, capacity, and structural improvements. In the spring of 2019, WSDOT lowered speed limits to 50 miles per hour on I-5 in both directions through some of the construction zones from South 48th Street to Port of Tacoma Road. These construction activities and temporary roadway configurations on I-5 may have affected the data collected, and therefore may have influenced the freeway operating conditions reported in this section.

During the existing PM peak hour, the I-5 southbound mainline approaching the SR 16 interchange is congested. Past the interchange, the mainline has little congestion in the southbound direction; the freeway segments operate between LOS B and LOS D. In the northbound direction, I-5 operates at LOS F from South 38th Street back to the south limit of the study area. This congestion and high vehicle density may be due to vehicles making lane changes within the weaving section between South 56th Street and South 38th Street. The southbound collector-distributor to South 38th Street generally operates at LOS D, except for moderate congestion on the basic segment downstream of the South 38th Street on-ramp. This segment operates at LOS E due to vehicles merging and preparing to enter I-5 southbound.

SR 16 freeway segments operate at LOS D or better during the existing PM peak hour, except for the weave between the on-ramp from Sprague Avenue and the off-ramp to South Union Avenue in the westbound direction. This weave segment operates at LOS F.

Freeway level of service results for segments on I-5 and SR 16, including density in terms of passenger cars per hour per lane (pc/hr/ln), are shown in Exhibits 2-4 through 2-6. Based on WSDOT guidance for freeways in urban areas, LOS D is the acceptable standard.

LOS LOS LOS LOSPM Peak Hour C PM Peak Hour B PM Peak Hour D PM Peak Hour E

325175

720 10 5 70 490 335 570 125 260 4705 160

Union Ave SB Union Ave NB S 38th St S 38th St

15 35 145270 430 200 710 155 270 170 810 220 165 510

100 270

LOS LOS LOS LOSPM Peak Hour B PM Peak Hour A PM Peak Hour D PM Peak Hour B

335495 320 805 415 945 50 50

305 45 270S 38th St S 38th St Tacoma Mall Blvd S 38th St

1095 720695 315 170 480 60 565 195

LOS LOS LOS LOSPM Peak Hour B PM Peak Hour C PM Peak Hour B PM Peak Hour B

400

20 420 530 745 55 60 665 160 210 15055 80 175 310

S 38th St S 42nd St S 45th St S 47th St

595225 5 185 50 580 45 415 135 65 2020

LOS LOSPM Peak Hour C PM Peak Hour C

(shown on this map)

200 125530 195 240 50 430 225 360

90 65 Stop Controlled Approach Shared Left/ThroughS 47th St S 48th St Shared Through/Right Existing PM

Future PM105 40380 70 270 50 460 240 380 90130 245

Green shading indicates the intersection operates better than agency LOS standard. ‐ Signalized and stop‐controlled intersections are analyzed in Synchro, Version 10.Orange shading indicates the intersection operates at the agency LOS standard. ‐ Results are based on Highway Capacity Manual (HCM) 2010 methodology.Red shading indicates the intersection operates worse than agency LOS standard. ‐ Intersection delay is measured by average seconds of delay per vehicle.

‐ City of Tacoma LOS standard is LOS E, WSDOT LOS standard is LOS D.

Future PM

(shown on Exhibit 2‐4)

Intersection Control

Signalized Intersection

Delay (s)

23.2 21.8

15.2 21.5

S Pine St & S 42nd St

13.719.7Delay (s)

S Pine

St

S Tacoma Way & S 38th St

11.2

Delay (s) Delay (s)

Delay (s)14.0

Delay (s)8.7

Delay (s)42.4

Delay (s)12.2

14.0

15

Intersection Number

Notes

Left‐turn, through, and right‐turn volumes shown by movement, not by approach lane

channelization.

Exhibit 2‐2Existing (2018) Intersection Volumes

420

S Steele St

525

S Tacoma Way

295

Delay (s) Delay (s) Delay (s) Delay (s)

19

S Pine

St

14 S Union Ave & S 38th St

I‐5 Tacoma Mall Boulevard Access Feasibility Study

725

615

S Tacoma Way

Right

Through

Left

Existing PM

18 S Pine St & S 47th St

S Oakes St & S 47th St 20 Tacoma Mall Blvd & S 48th St Legend Turning Volumes & Channelization

S Pine

St

16 S Pine St & S 45th St

13

820 400

690

9 S Steele St & S 38th St

570

S Steele St & Tacoma Mall Blvd

S Pine St & S 38th St

Delay (s)54.7

Delay (s)55.6

10 I‐5 SB Ramps & S 38th St 11 I‐5 NB Ramps & S 38th St 12

5 Union Ave ‐ SB & S Tacoma Way 6 S 37th St & S Tacoma Way 8

Not to Scale

Map Source: ESRI

Tacoma Mall

5

6

1

2

3

4

7

8 9 10 11

12

13 14

15

16

17 18 1920

21 22

23

24 25

STOP

STOP

STOP

XX

XX

STOP

STOP

STOP

STOP

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LOS LOS LOS LOSPM Peak Hour D PM Peak Hour C PM Peak Hour D PM Peak Hour C

230 165400 895 560 640 465 135 790 190 630 115 800 275 585

210 SR 16 WB 70 100Off‐Ramp Center St Center St

SR 16 EBOff‐Ramp 135 85

510 805 135 355 275 575 45 365 210 640 40475 255 155

LOS LOS LOS LOSPM Peak Hour C PM Peak Hour B PM Peak Hour C PM Peak Hour C

120 25 50 120180 765 130 605 5 700 60 150 60 670 120 585 45 335 200 700

175 160 75 105S Tacoma Way S 47th St S 56th St S 56th St

130 10 55 70400 110 655 120 110 5 480 150 710 135 465 90 820 15 180 90115 10 75 30

LOS LOS LOSPM Peak Hour B PM Peak Hour D PM Peak Hour C

365 35770 165 280 345 315 130 630 155 305 65 690

300 I‐5 SB 105 50Off‐Ramp 15 S 56th St

55 185615 675 820 120 200 55

335 65 195 185 18585

(shown on this map)

Stop Controlled Approach Shared Left/ThroughShared Through/Right Existing PM

Future PM


‐ City of Tacoma LOS standard is LOS E, WSDOT LOS standard is LOS D.

S Pine St & Center St1 S Union Ave & SR 16 WB Ramps 2 S Union Ave & SR 16 EB Ramps 3 S Union Ave & Center St

7 S Pine St & S Tacoma Way 17 S Tacoma Way & S 47th St

4

195490

Delay (s) Delay (s) Delay (s)

23 Tacoma Mall Blvd & I‐5 SB Off‐Ramp 24Tacoma Mall Blvd & S 56th St/ I‐5 SB On‐Ramp

25

Notes


Turning Volumes & Channelization

Right

Through

Left

Existing PM


channelization.

Legend

Exhibit 2‐3Existing (2018) Intersection Volumes

(continued)

Delay (s) Delay (s)11.7 48.2

Delay (s)29.8

Intersection Number

Future PM

(shown on Exhibit 2‐3)



S Alaska St & S 56th St

21 S Tacoma Way & S 56th St 22 S Oakes St & S 56th St

Delay (s)27.9

Delay (s)47.5 31.7 48.8 32.9

Delay (s) Delay (s) Delay (s)28.9 10.8 27.2

Not to Scale

Map Source: ESRI

Tacoma Mall

5

6

1

2

3

4

7

8 9 10 11

12

13 14

15

16

17 18 1920

21 22

23

24 25XX

XX

STOP

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Segment TypeSegment Length (ft)

No. of Lanes/LA or LDSB Milepost

Ramp Location

# # #

Ramp Location

NB MilepostSegment Type

Segment Length (ft)No. of Lanes/LA or LD

1. Results based on Highway Capacity Manual (HCM) 2010 Freeway Analysis. Segment Volumes2. = LOS (HCM 2010) Basic mainline segment

= Density (pc/mi/ln) Merge/Diverge segment3. Freeway base FFS from existing speed data. = Volume (veh/hr) Weave segment

FFS: Free‐flow speed LA: Length of acceleration lane Mainline LaneLOS: Level of Service LD: Length of deceleration lane On or Off Ramp LaneHCS: Highway Capacity Software LW: Weaving lengthpc/mi/ln: Density is measured in passenger cars per mile per lane

I‐5, Milepost 129.83 to 133.85

I‐5 Tacoma Mall Access Feasibility Study

1,610 4,815

Notes Legend

Exhibit 2‐4Length of analysis segments are consistent with HCM methodology for basic, weave, merge and diverge.

D GP Vol.24 Ramp Vol.

4,015 715 3,300 600 2,700 50528.5 27.7

Volume 6,720 870 5,850 6,490

Existing (2018)PM Peak Hour Freeway Analysis

1,940 Weave Vol.

16.4C C B B B B

17.5 11.0 17.2

685 3,330 1,415 4,745Baseline(2040)PM Peak

LOS

Existing(2018)PM Peak

LOS F F F

D DDensity 67.9 79.1 93.3 29.6 20.1 23.6

Volume 6,505 850 5,655 6,280 4,015Density 92.6 93.3 105.9 26.2 18.4

C D3 Lanes 3 Lanes LA: 350 LA: 350 3 Lanes

22.0 15.0 26.2 25.4

5 Lanes 5 Lanes 4 Lanes 4 Lanes 3 Lanes LD: 300 3 LanesF C C B

Basic1000 1500 3300 2900 2000 1500 1000 1500 600

Diverge Basic Diverge Basic Merge Merge1500 1500 3000

Basic Diverge Basic Weaving Basic129.83 130.02 130.30 130.93 131.47

Southbound I‐5

PM Peak Hour

4:30 ‐ 5:30S 74th St /S 72nd St SR 705

Northbound I‐5

132.13 133.28 134.42 134.99131.85

S 56th St SR 16 EB / S 38th St S 38th St SR 16 WB

Exit 133 SR 16 EBS 56th St S 38th St SR 705 S 38th St

10006 Lanes

130.07 130.45 131.06 131.17 131.23 131.34 131.89 132.375 Lanes 4 Lanes 4 Lanes 4 Lanes LD: 600 6 Lanes

132.46 132.65 132.78 132.97 133.355 Lanes 5 Lanes 4 Lanes 5 Lanes 5 Lanes 5 Lanes 4 Lanes 5 Lanes

1500

5,115 450Diverge Diverge Basic

500 1500 3200 600 300 600 2900Basic Merge Merge Basic Diverge Basic

1500 5001000 500 1000 700Basic Merge Basic Diverge Overlap Merge

1,145 7,275 1,68027.5

Volume 8,555 1,035 7520 900 8,42031.0 31.2 33.7 25.2 21.3 23.8Density 29.0 25.0 32.7 28.5 31.0

5,565 725 3,510 9,800480

645 3,270 7,655Baseline(2040)PM Peak

LOS D C D


C C C C DD D C D C C23.4 27.0 38.0

Volume 7,165 835 6,330 785 7,115 3,375 3,740 3,740

CDensity 24.1 19.8 26.7 24.0 28.0 33.3 21.2 16.0

D D C B B DLOS C C D C18.8 33.0 21.6

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No. of Lanes/LA or LDWB Milepost

Ramp Location

# # #

Ramp Location

EB MilepostSegment Type




FFS: Free‐flow speed LA: Length of acceleration lane Existing Mainline LaneLOS: Level of Service LD: Length of deceleration lane Existing On or Off Ramp LaneHCS: Highway Capacity Software LW: Weaving lengthpc/mi/ln: Density is measured in passenger cars per mile per lane

SR 16, Milepost 0 to 1.69



D GP Vol.24 Ramp Vol. Existing (2018)

PM Peak Hour Freeway Analysis1,940 Weave Vol.

1,835 875 850 1,725

Notes Legend

19.33Volume 4,250 615 3,635 785 4,420 725 985 985

29.2 22.1 22.1 16.85 7.35 16.05Density 17.88Baseline(2040)PM Peak

LOS C C C C D D3,385 360


17.88 20.4 27.3 29.2

12.5 14.0Volume 3,455 670 2,785 600

C170 1,2453,025 3,025 1,950 1,075

C C B A B

B BDensity 14.5 14.5 15.7 20.6 22.2 22.2 17.0

C C C C C ALOS B B B C17.0 18.7 9.1

3 Lanes 3 Lanes 3 Lanes 2 Lanes LA: 450 2 Lanes4 Lanes 4 Lanes 3 Lanes LA: 500 3 Lanes LD: 350700 700 1500 200 1500 1500400 1500 2100 800 200 800Basic Basic / Diverge Diverge Basic Merge Basic

0.59 0.46 0.18 0.14Basic Diverge Basic Merge Overlap Diverge

1.69 1.61 1.33 0.93 0.78 0.74

I‐5 / SR 16 Interchange

Sprague Ave

Eastbound SR 16

S Union Ave Sprague Ave I‐5 SB / S 38th St

S Union Ave Sprague Ave

Westbound SR 16

PM Peak Hour

4:30 ‐ 5:30Regents Blvd/Center St

LD: 300 2 Lanes1.59 1.53 1.34 0.78 0.44 0.12

3 Lanes LA: 500 3 Lanes 4 Lanes 2 Lanes 2 Lanes

625 2,655Diverge Basic

300 1000 2500 2300 1500 200 1500 900Basic Merge Basic Weaving Basic / Merge Basic

C CDensity 36.1 29.7 31.6 34.1 28.9 17.1 28.1 22.3

Baseline(2040)PM Peak

LOS D D C C


Volume 6,990 800 6,190 7,265 1,050 2030

Volume 5,425 890 4,535 5,305 1,695 1695 605 2,300

B B C CDensity 29.1 23.5 24.0 24.3 14.3LOS D C C F

14.3 24.3 19.4

N

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Ramp Location

# # #




I‐5 Collector‐Distributor, Milepost 0.42 to 1.53


Notes Legend


D GP Vol.24 Ramp Vol. Existing (2018)

PM Peak Hour Freeway Analysis1,940 Weave Vol.

0.42

S 38th St EB/WB S 38th St EB S 38th St WB I‐5 Southbound

0.61

Southbound I‐5/ Eastbound SR 16

to S 38th St Collector‐Distributor

SR 16 Eastbound

PM Peak Hour

4:30 ‐ 5:30I‐5 Southbound I‐5 / SR 16 Interchange

1.53 1.47 1.19 1.03 0.85

Basic1,535

2 Lanes300 1500 850 450 1800 1000

2 Lanes LA: 400 2 Lanes 3 Lanes 3 Lanes

Basic Merge Basic Diverge Weaving

28.7 25.4Volume 1,145 1,040 105 430 810Density 1.2 4.03 14.0 8.2

2,690 3,185 2,540Baseline(2040)PM Peak

LOS A A B A C

Existing(2018)PM Peak Volume 3,375 1,000 2,375

D

D DDensity 39.9 38.9 26.7 20.1 31.1 25.9LOS E D D C

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2.4 Existing Crash Statistics Crash data were provided by WSDOT for the most recent 6 years (2013-2018) for the facilities within the study area. Note that under 23 U.S. Code §148 and 23 U.S. Code §409, safety data, reports, surveys, schedules, and lists compiled or collected for the purpose of identifying, evaluating, or planning the safety enhancement of potential crash sites, hazardous roadway conditions, or railway-highway crossings are not subject to discovery or admitted into evidence in a federal or state court proceeding or considered for other purposes in any action for damages arising from any occurrence at a location mentioned or addressed in such reports, surveys, schedules, lists, or data.

The observed crash data were considered in terms of the State of Washington’s strategic highway safety plan emphasis areas (e.g., Target Zero plan). These emphasis areas focus on the largest contributing factors for crashes in order to develop targets and strategies for reducing fatal and serious injury crashes throughout the state.

A total of 650 crashes occurred within 50 feet of the study area intersections between 2013 and 2018. The intersection of South 38th Street and South Steele Street had the most crashes at 60, which is nearly 10 percent of all intersection-related crashes. Fifty-seven percent of crashes involved property damage (no injuries), and 32 percent involved a possible injury. One crash at this location involved pedestrians and one crash involved a bicyclist. The most common types of intersection-related crashes within the study area involved vehicle sideswiping (43 percent of all crashes) and rear-end collisions (31 percent).

On study area freeways and arterials, nearly 3,000 crashes occurred between 2013 and 2018. The majority of these crashes (nearly 60 percent) occurred on the freeway mainline. Approximately 20 percent of all crashes occurred on interchange ramps. Most of the freeway crashes involved property damage only or possible injuries, with far fewer fatal, serious, and minor injury crashes (Exhibit 2-7). Roughly 20 percent of all segment crashes occurred on the local arterial streets. Most of these crashes occurred on South 38th Street, South Pine Street, and Tacoma Mall Boulevard within the study area. Exhibit 2-7 summarizes the study area crashes by severity.

Exhibit 2-7. Crashes by Severity in the Study Area, 2013-2018

Roadway Facility Description

Crash Severity

Total Crashes

Fatal Crash

Serious Injury

Minor Injury

Possible Injury PDO

Un-known

I-5 Mainline SRMP 131.2 to 133.0 1 9 56 261 930 4 1,261

SR 16 Mainline SRMP 0.0 to 1.7 2 3 27 96 366 0 494

I-5/SR 16 Interchange Ramps between I-5 and SR 16

0 6 16 35 195 9 261

I-5/South 38th StreetInterchange

Ramps between I-5 and South 38th Street

0 2 13 55 246 2 318

South Union Avenue SR 16 to South 38th Street

0 1 2 10 38 3 54

South 38th Street South Tacoma Way to South Alaska Street

0 1 5 44 77 2 129

South 47th/48th Street

South Tacoma Way to South Alaska Street

0 0 5 22 57 1 85

South Tacoma Way South M Street to South 47th Street

2 1 8 33 59 4 107

South Pine/Oakes Street

Center Street to South 56th Street

0 4 3 37 80 7 131



Exhibit 2-7. Crashes by Severity in the Study Area, 2013-2018


Crash Severity

Total Crashes

Fatal Crash

Serious Injury

Minor Injury

Possible Injury PDO

Un-known

South Steele Street South 35th Street to South 43rd Street

0 0 2 2 15 1 20

Tacoma Mall Boulevard

South Steele Street to South 56th Street

0 2 8 33 71 3 117

Total 5 29 145 628 2,134 36 2,977 SRMP = State Route Milepost

PDO = property damage only

On the freeways and arterials, the most common crash types involve vehicles rear-ending one another, followed by vehicles sideswiping another vehicle. Exhibit 2-8 shows the study area crashes by type of collision.

Exhibit 2-8. Crashes by Type in the Study Area, 2013-2018


Crash Type

Total Crashes

Rear-End

Right-Angle

Fixed-Object

Side-swipe

Ped-estrian

Bi-cyclist

Head-On Other

I-5 Mainline SRMP 131.2 to 133.0

774 0 158 269 1 0 0 59 1,261

SR 16 Mainline

SRMP 0.0 to 1.7 322 0 57 92 0 0 0 23 494

I-5/SR 16 Interchange

Ramps between I-5 and SR 16

104 0 74 62 0 0 1 20 261

I-5/South 38th Street Interchange

Ramps between I-5 and South 38th Street

140 0 83 76 1 0 0 18 318

South Union Avenue

SR 16 to South 38th Street

12 2 3 31 1 1 0 4 54

South 38th Street


16 35 0 69 3 0 0 6 129

South 47th/48th Street


13 2 6 58 4 1 0 1 85

South Tacoma Way

South M Street to South 47th Street

29 21 9 38 3 4 0 3 107

South Pine/Oakes Street

Center Street to South 56th Street

38 12 6 66 5 1 0 3 131

South Steele Street

South 35th Street to South 43rd Street

3 3 0 12 0 0 0 2 20

Tacoma Mall Boulevard

South Steele Street to South 56th Street

33 22 4 49 2 0 1 6 117

Total 1,484 97 400 822 20 7 2 145 2,977



Exhibit 2-9 shows the locations of pedestrian and bicyclist crashes within the study area. Although Exhibit 2-8 shows three reported pedestrian crashes on South 38th Street within the study timeframe, crashes involving pedestrian or other non-motorized modes with or without motor vehicles may be reported as the crash type “other,” or may be recorded as occurring on a local street that is not documented in this study (such on South Cedar Street or South Fife Street).

Within the study area, the majority of pedestrian and bicycle crashes occur along the South 38th Street corridor, near the Tacoma Mall Boulevard and South 48th Street intersection (adjacent to the transit center), and along South Pine Street/South Oakes Street.

2.5 Pedestrian and Bicycle Facilities Most of the local streets in the study area have adjacent sidewalks. Few dedicated bike lanes exist along local streets. The South 38th Street bridge crossing of I-5 has a sidewalk on only the south side of the bridge. A separate pedestrian/bicycle bridge crosses I-5 north of the South 38th Street interchange.

The Scott Pierson Trail and the Water Ditch Trail are existing shared-use paths within the study area. The Scott Pierson Trail is owned by WSDOT and operated by the City of Tacoma. It is approximately 6.8 miles long, beginning at South 25th Street in the vicinity of State Street in Tacoma and generally follows the alignment of SR 16 to the Tacoma Narrows Bridge. The Water Ditch Trail extends from Tacoma’s southern boundary at the intersection of South Tacoma Way and South 80th Street to the intersection of South Tacoma Way and South 47th Street. This trail is currently in Phase 3 of its expansion. Phase 3 will complete the trail along South Tacoma Way between South Pine Street and South M Street.



Exhibit 2-9. Pedestrian and Bicycle Crashes (2013-2018)



2.6 Bus Transit Operations/Service Transit agencies serving the study corridor include Sound Transit and Pierce Transit. A list of bus transit routes traveling within or connecting to the study corridor is provided in Exhibit 2-10. Sound Transit provides regional service with Regional Express Routes 574, 592, 594, and 595. These routes generally travel on I-5 and SR 16.

Exhibit 2-10. Study Area Bus Transit Routes

Route No. Route Name Route

Peak Headway (Minutes)

Sound Transit 574 Lakewood - SeaTac SeaTac/Tacoma Dome/Lakewood Station via I-5 30

592 DuPont/Lakewood – Seattle Downtown Seattle/DuPont Station via I-5 15

594 Lakewood – Seattle Downtown Seattle/Downtown Tacoma/Dupont Station via I-5 20

595 Gig Harbor – Seattle North Purdy Park-and-Ride/Downtown Seattle via SR 16/I-5 22

Pierce Transit

3 Lakewood - Tacoma Lakewood Mall Transit Center/Tacoma Mall Transit Center/Downtown Tacoma via South Tacoma Way and South 38th Street

30

52 TCC – Tacoma Mall TCC/Tacoma Mall via South Union Avenue and South 47th Street

30

53 TCC – Tacoma Mall TCC/Tacoma Mall via South 66th Street and South Oakes Street

30

54 Tacoma Mall – 72nd Street Transit Center

Tacoma Mall/72nd Street Transit Center via South 38th Street 30

55 Tacoma Mall – Parkland Transit Center

Tacoma Mall/Parkland Avenue via South Alaska Street and South 48th Street

30

57 Tacoma Mall – Downtown Tacoma

Tacoma Mall/Downtown Tacoma via South Union Avenue and Martin Luther King Jr. Way

30

102 Gig Harbor Express North Purdy Park-and-Ride to downtown Tacoma 30

TCC = Tacoma Community College

Pierce Transit service includes paratransit and vanpool options in addition to fixed-route bus transit. Within the study area, Pierce Transit provides service between the Tacoma Mall, Tacoma Community College, and downtown Tacoma.


Chapter 3 Future Conditions 3.1 Baseline 2040 Roadway Network The existing year travel model network was provided by the City of Tacoma and reflects the current roadway network within the study area. The future Baseline 2040 year roadway network includes all the proposed transit and highway transportation improvements within the region, within the city limits, and in the study area vicinity as listed in the Methods and Assumptions memorandum (Appendix B). Additional roadway network changes were made to the 2040 transportation network based on reviews by the City of Tacoma and the study team. These additional updates to the model network are listed in Exhibit 3-1.

Exhibit 3-1. Future Year (2040) Transportation Network Updates

Facility Model Network Change

Earnest S Brazill Street Reduced number of lanes from 4 to 2 in both directions between South Sprague Avenue and South Yakima Avenue; reduced number of lanes from 2 to 1 in both directions between South Yakima Avenue and South Tacoma Avenue

South Tacoma Way Reduced number of lanes from 2 to 1 in eastbound direction between South Pine Street and South M Street

South 47th Street/South 48th Street

Removed the previously assumed roadway extension between South Tacoma Way and South Orchard Street

The Baseline 2040 roadway network and transportation system is assumed to include the improvements presented in the Tacoma Mall Neighborhood Subarea Plan (City of Tacoma, 2018a) as adopted May 15, 2018. The City of Tacoma and the PSRC have designated the Tacoma Mall Neighborhood a Regional Growth Center. The Tacoma Mall Neighborhood is expected to receive a significant portion of the City’s future housing and employment growth.

The Tacoma Mall Neighborhood Subarea Plan vision is for a compact, pedestrian-friendly, urban mixed-use neighborhood with access to multimodal transportation options. PSRC’s VISION 2050 and the City of Tacoma’s Comprehensive Plan call for this area to be second only to Downtown Tacoma in jobs and housing, and to be the densest neighborhood in South Tacoma. This Subarea Plan is intended to initiate actions that catalyze further growth and investment and guide regional infrastructure investments following regional growth policy.

The Subarea Plan includes construction of an internal Loop Road that would connect the four districts in the neighborhood, provide multimodal transportation options, and enable internal trip capture on local streets. The Subarea Plan also includes a complete and connected street network, and adds new streets and pedestrian and bicycle infrastructure. It identifies the priority projects that must occur for the City’s vision of the Tacoma Mall Neighborhood to be achieved. These projects are expected to increase transit, pedestrian, and bicycle mode use within the area. A generalized prioritized project list is presented in the Subarea Plan along with a more detailed list of projects identified for near-term (within 5 years), mid-term (5 to 15 years), and long-term (15+ years) implementation.

Improved access between I-5 and the neighborhood is included as a priority in the Subarea Plan. The I-5 Tacoma Mall Boulevard Access Feasibility Study is intended to evaluate feasibility of strategies to address that priority. The other priorities are assumed to be a part of the Baseline 2040 transportation system.

Chapter 3. Future Conditions


3.2 Demand Model Forecasting This section briefly describes the travel demand modeling data and techniques that were used to forecast future traffic demand and trip patterns into and out of the study area. For more detailed demand model information, refer to the Travel Demand Model Documentation memorandum (Appendix G).

3.2.1 Travel Demand Model The Tacoma Travel Model, which is based on the PSRC Regional Travel Demand Model, Version 1.00b, was used for forecasting in this study. The Tacoma Travel Model is a refined version of the PSRC model, which uses relatively large geometric shapes/zones to represent geographical blocks or areas because the model is regional in nature and is focused on generating travel forecasts across all of Snohomish, King, Pierce, and Kitsap Counties. These larger zones are divided into smaller zones within the study area to allow for more refined traffic forecasts on lower classification roadways.

3.2.2 Land Use Land use estimates for the existing year (2018) and future year (2040) were developed from data collected from PSRC. The existing year (2018) land use estimates were based on the interpolation of PSRC’s 2014 and 2020 land use data. The future year (2040) estimates within the city of Tacoma were redistributed to the more refined zone structure consistent with the land use estimates that were evaluated in the Tacoma Mall Neighborhood Subarea Plan (City of Tacoma, 2018a). A summary of household and employment estimates for the existing and future years is shown in Exhibit 3-2.

Exhibit 3-2. Existing Year (2018) and Future Year (2040) Household and Employment Summary

Area

Existing Year (2018) Future Year (2040)

Household Totals

Employment Totals

Household Totals

Employment Totals

Entire Puget Sound Region

(as covered in the Tacoma Travel Model)

1,652,900 2,210,005 2,108,069 2,979,032

City of Tacoma 103,843 132,928 157,521 216,126

Tacoma Mall Zones 2,062 9,091 6,507 16,988

Source: PSRC’s Land Use Vision Version 2 (LUV.2) (April 2017).

3.3 Baseline Intersection Operations Intersection operations were analyzed using forecasted traffic volumes and the implemented background projects listed in the Methods and Assumptions memorandum (Appendix B).

With anticipated growth in households and employment within the study area, and with the changes expected in household density within the Tacoma Mall Neighborhood, traffic volumes on local streets are expected to increase. Based on the demand model forecasts, local street traffic volumes traveling between the study area and neighborhoods to the north of SR 16 would increase by approximately 28 percent overall by the year 2040. Traffic volumes traveling between the study area and the neighborhoods to the east of I-5 would increase by approximately 23 percent, and by approximately 18 percent between the study area and the



neighborhoods west of the study area. Traffic volumes traveling between the study area and neighborhoods to the south are expected to increase by 10 percent by the year 2040.

Three of the 25 study intersections are expected to operate worse than the LOS standard in the 2040 baseline condition. Background growth in traffic volumes would cause two intersections that currently meet standards to exceed their respective LOS standard. These intersections are the South Union Avenue/SR 16 westbound ramp terminal (from LOS D to LOS E) and the intersection of South 38th Street and South Steele Street (from LOS E to LOS F). The stop-controlled approach from South Union Avenue to South Tacoma Way would be expected to operate at LOS F (reduced from LOS C in existing conditions) due to vehicles waiting to find a gap in traffic before turning.

Two intersections are expected to worsen from existing conditions, but still meet their LOS standard. At South 38th Street and South Pine Street, future baseline operations would worsen to LOS E (from LOS D in existing), but would remain compliant with the City of Tacoma’s LOS standard. Traffic volumes at the intersection of Tacoma Mall Boulevard and the South 56th Street/I-5 southbound on-ramp would increase, but operations would remain at the standard LOS D.

Exhibit 3-3 and Exhibit 3-4 show comparisons between the existing (2018) and future baseline (2040) intersection LOS, delay, and volumes.

3.4 Baseline Freeway Operations Future freeway volumes were forecasted based on the travel demand model methodology described in the Travel Demand Model Documentation memorandum (Appendix G), and were developed using post-processing techniques outlined in the National Cooperative Highway Research Program Report 765 – Analytical Travel Forecasting Approaches for Project-Level Planning and Design (2014). Freeway operating conditions for both existing and future were analyzed using the Highway Capacity Software and are based on the Highway Capacity Manual 2010 freeway capacity models. Freeway LOS results for segments on I-5 and SR 16, including density in terms of passenger cars per hour per lane, are shown in Exhibits 3-5 through 3-7 for the PM peak hour condition.

The 2040 future baseline condition assumes the completion of planned background investments listed in the Methods and Assumptions memorandum (Appendix B). In relation to the I-5 mainline, this includes new HOV direct-connection ramps to and from SR 16, an extended HOV lane in the northbound direction, and a new southbound on-ramp from SR 16 for general-purpose vehicles. This new southbound on-ramp allows eastbound vehicles from SR 16 to access the I-5 southbound mainline without traveling through the South 38th Street collector-distributor (CD). While continuing HOV lanes on I-5 through the study area from SR 16 to SR 512 is part of a long-range vision for the state, extending these lanes is not planned or programmed and was not included in the baseline analysis for this study.

In 2040, the southbound mainline generally operates at the LOS standard. The diverge segment to SR 16 westbound is the only segment showing significant congestion at LOS E. The northbound mainline continues to operate at LOS F between South 56th Street and South 38th Street, even with the added capacity of the HOV lane extension. However, the upstream densities of the weaving segment are improved.

SR 16 is expected to have extended HOV lanes in both directions through the study area, as well as new HOV on- and off-ramps to and from I-5 in the 2040 future baseline condition. In the eastbound direction, segments are expected to operate at LOS D or better and little congestion is anticipated. In the westbound direction, the weaving segment would continue to operate at



LOS F and the segment beyond the South Union Avenue on-ramp would worsen to LOS E and likely experience congestion during the PM peak hour.

On the southbound CD facility, volumes would decrease dramatically due to the new direct connection from SR 16 eastbound to I-5 southbound. Vehicles coming from SR 16 would no longer have to take the CD roadway to merge onto I-5 southbound; instead those vehicles would merge directly onto the I-5 southbound mainline upstream of the CD. As a result of this new connection, the CD operates better than existing conditions for all segments.

3.5 Summary of Deficiencies Within the study area, the following freeway segments are expected to operate at LOS E or LOS F in the future Baseline 2040 condition:

• I-5 northbound, basic segment from South 56th Street to South 38th Street

• I-5 southbound, diverge segment from I-5 at the SR 16 westbound off-ramp

• SR 16 westbound, weaving segment from the Sprague Avenue on-ramp to the South Union Avenue off-ramp, and basic segment downstream of the South Union Avenue on-ramp

With the future planned direct-connection improvement from SR 16 eastbound to I-5 southbound, operations on the I-5 southbound CD would improve by the 2040 baseline year.

This is due to fewer weaving volumes and lower volume totals overall as vehicles from eastbound SR 16 would be able to access I-5 southbound without traveling through the current CD configuration.

With the expected growth in households and employment in Tacoma by 2040, traffic volumes would increase and 3 of the 25 study intersections would operate worse than their jurisdictional LOS standard. The signalized intersection of South 38th Street at South Steele Street would operate at LOS F, and the South Union Avenue/SR 16 westbound ramp terminal would operate at LOS E. The stop-controlled approach from South Union Avenue to South Tacoma Way would be expected to operate at LOS F due to vehicles waiting to find a gap in traffic.

LOS LOS LOS LOS2018 Existing C 2018 Existing B 2018 Existing D 2018 Existing E2040 Baseline F 2040 Baseline C 2040 Baseline E 2040 Baseline F

115 265 650325 350

1095 10 110 540 285 175 305720 10 5 5 70 490 335 570 825 125 260 470

5 10 160 155Union Ave SB Union Ave NB S 38th St

S 38th St15 15 100 35 200 145275 270 430 200 805 710 155 270 170 810 810 220 165 510

625 215 145 100 250 370 165 285 270

305 200 750

LOS LOS LOS LOS2018 Existing B 2018 Existing A 2018 Existing D 2018 Existing B2040 Baseline B 2040 Baseline B 2040 Baseline D 2040 Baseline D

260 1020 100

1000 340 335 415 665 50 135495 320 805 1060 415 45 20 945 50 360

305 325 270 310S 38th St S 38th St Tacoma Mall Blvd S 38th St

1495 1095 985 720 130 n/a715 695 315 170 480 60 165 n/a 565 195

430 180 765 30 120 n/a

30 560 270

LOS LOS LOS LOS2018 Existing B 2018 Existing C 2018 Existing B 2018 Existing B2040 Baseline B 2040 Baseline B 2040 Baseline B 2040 Baseline B

400 37075 435 460 775 65 695 170 19020 420 530 745 55 60 90 665 160 210 230 150

55 40 80 90 175 190 310 380S 38th St S 42nd St S 45th St S 47th St

645 595460 225 5 185 50 580 45 415 135 115 65 2075 20 15 200 55 650 55 475 135 50

LOS LOS2018 Existing C 2018 Existing C2040 Baseline C 2040 Baseline C (shown on this map)

535 205 200 240 75 455 220 125 120530 195 240 320 50 430 225 360 425

90 170 65 60 Stop Controlled Approach Shared Left/ThroughS 47th St S 48th St Shared Through/Right Existing PM

Future PM85 105 55 40460 380 70 270 50 500 460 240 380 90150 130 60 300 80 300 245 305 410 75 Channelization


‐ City of Tacoma LOS standard is LOS E, WSDOT LOS standard is LOS D. ‐ Background intersection improvements are described in the Tacoma MallNeighborhood Subarea Plan (May 2018).

12.2

820400

5251075

S Steele St & Tacoma Mall Blvd 13 S Tacoma Way & S 38th St


825

51.0 23.4 59.5

15.7 10.7 40.0 41.7

Left

Existing PM

S Pine

St

295

S Pine

St

S Pine

St

S Steele St

S Tacoma Way

690

14.0 8.7

940

710 490

825

12.3

18


channelization.

Notes


Exhibit 3‐3Existing (2018) and Baseline (2040)

PM Peak Hour Intersection Volumes

Future PM

Delay (s) Delay (s)23.2 21.8

Right

Through

28.5 27.5

715

Note: A traffic signal is planned at this location by 2040.

15.413.116.9

Intersection Number

(shown on Figure 1.2)



Future Improvements

420

S Tacoma Way

615

10 I‐5 SB Ramps & S 38th St 11 I‐5 NB Ramps & S 38th St 12

19 S Oakes St & S 47th St 20 Tacoma Mall Blvd & S 48th St Legend Turning Volumes & Channelization

S Pine St & S 47th St

Delay (s) Delay (s) Delay (s) Delay (s)15.2 21.5 14.0 11.2

14

55.680.4

570

9 S Steele St & S 38th St


900

5 Union Ave ‐ SB & S Tacoma Way 6 S 37th St & S Tacoma Way 8 S Pine St & S 38th St

19.7 13.7 54.7

S Union Ave & S 38th St 15 S Pine St & S 42nd St 16 S Pine St & S 45th St

1105

42.4

725

Signalization

STOP

STOP

STOP

STOP

Not to Scale

Map Source: ESRI

Tacoma Mall

6

1

2

3

4

7

10 11

12

13 14

15

16

17 18 1920

21 22

23

24 25XX

XX

STOP

58 9

STOP

STOP

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LOS LOS LOS LOS2018 Existing D 2018 Existing C 2018 Existing D 2018 Existing C2040 Baseline E 2040 Baseline C 2040 Baseline D 2040 Baseline C

390 925 710 515 125 790 190 230 245 110 810 275 165 175400 895 560 775 640 465 135 790 190 630 480 115 800 275 585 465

210 300 70 75 100 90SR 16 EB Ramp Center St Center St

SR 16 WB Ramp135 135 90 85

510 805 135 345 355 275 575 45 335 365 210 640 40515 395 475 705 270 260 255 225 595 35 155 155 215 680 55

LOS LOS LOS LOS2018 Existing C 2018 Existing B 2018 Existing C 2018 Existing C2040 Baseline D 2040 Baseline B 2040 Baseline C 2040 Baseline C

175 740 160 120 150 5 915 100 25 55 75 865 150 50 70 80 425 255 120 125180 765 130 605 930 5 700 60 150 205 60 670 120 585 635 45 335 200 700 780

175 230 160 190 75 130 105 100S Tacoma Way S 47th St S 56th St S 56th St

120 130 10 10 80 55 85 70545 400 110 655 120 135 110 5 480 150 700 710 135 465 90 820 820 15 180 90105 115 150 695 195 10 10 5 610 200 100 75 125 605 100 45 30 20 210 80

LOS LOS LOS2018 Existing B 2018 Existing D 2018 Existing C2040 Baseline B 2040 Baseline D 2040 Baseline C

845 305 370 340 140 365 415 160 350 65 35 65770 165 170 280 345 315 130 630 655 155 305 65 690 790

300 310 105 115 50 55I‐5 SB Off‐Ramp 15 15 S 56th St

60 55 215 185615 700 675 815 820 120 200 55680 340 335 65 195 185 150 185 135 370 75

85 85 65 205 190

(shown on this map)

Stop Controlled Approach Shared Left/ThroughShared Through/Right Existing PM

Future PM

Channelization


‐ City of Tacoma LOS standard is LOS E, WSDOT LOS standard is LOS D. ‐ Background intersection improvements are described in the Tacoma MallNeighborhood Subarea Plan (May 2018).

1 S Union Ave & SR 16 WB Ramps 2 S Union Ave & SR 16 EB Ramps 3 4 S Pine St & Center St


S Union Ave & Center St

47.5 31.7 48.8 32.9

195490

7 S Pine St & S Tacoma Way 17 S Tacoma Way & S 47th St 21 22 S Oakes St & S 56th St


S Tacoma Way & S 56th St

27.9

23 Tacoma Mall Blvd & I‐5 SB Off‐Ramp 24Tacoma Mall Blvd & S 56th St/ I‐5 SB On‐Ramp

25 S Alaska St & S 56th St

48.2 29.8

28.9 10.8 27.2

Legend

410

220

Notes


74.6 28.6 39.0 30.0

45.1 12.4 31.7

Right

Through

Left

Exhibit 3‐4Existing (2018) and Baseline (2040) PM Peak Hour Intersection Volumes

(continued)

Future PM

29.9

11.7 49.4 34.4

Existing PM


channelization.

Turning Volumes & Channelization

Delay (s) Delay (s) Delay (s)11.7

Intersection Number


Future Improvements

Signalization

(shown on Figure 1.1)


XX

XX

Not to Scale

Map Source: ESRI

Tacoma Mall

5

6

2

3

4

7

8 9 10 11

12

13 14

15

16

17 18 1920

21 22

23

24 25

STOP

1

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Ramp Location SR 16 EB

HOV Lane End ‐>

# # #

Ramp Location

NB MilepostSegment Type




FFS: Free‐flow speed LA: Length of acceleration lane Mainline LaneLOS: Level of Service LD: Length of deceleration lane On or Off Ramp LaneHCS: Highway Capacity Software LW: Weaving length Future No Build Lanepc/mi/ln: Density is measured in passenger cars per mile per lane

D28.07,115

C25.2480

Merge10005 Lanes

Merge600

5 Lanes

C33.71,680Merge1500

Basic2900

23.45,565Basic700

B16.03,740

1000Diverge45023.8

C21.67,655D

27.59,800Basic500

6 Lanes


PM Peak Hour

4:30 ‐ 5:30

Exhibit 3‐5

I‐5, Milepost 129.83 to 133.85

Existing (2018) and Baseline (2040)PM Peak Hour Freeway Analysis

Notes Legend

6,505 850

Ramp Vol.Weave Vol.

241,940

D

130.02

GP Vol.

F92.6 93.3

Length of analysis segments are consistent with HCM methodology for basic, weave, merge and diverge.

S 74th St /S 72nd St

S 56th St

6,280F

Density


LOSDensityVolume


LOS

29.66,490

F67.96,720

C19.8835C

25.01,035Merge15005 Lanes

C24.17,165

5 Lanes 5 Lanes 4 Lanes

D31.08,420Overlap300

3300

130.45

Basic32004 Lanes 5 Lanes

VolumeD

29.08,555Basic500

5 Lanes130.07

1000

134.99133.28

C22.0685

131.47 131.85 132.13

LA: 35010003 Lanes

C26.21,415

F26.2

Weaving Diverge Diverge30003 Lanes

D25.4

4 Lanes2900 1500 1500

LD: 300

B11.02,700

3,330

3 Lanes1500

F79.1870

B16.43,300 600

17.5BC

20.14,015

C23.6715


LOS

129.83

VolumeDensity

F

Southbound I‐5

Northbound I‐5

130.30

5,655F

93.35,850


LOSDensityVolume

Basic Diverge Basic

F105.9

1500

Diverge15006 Lanes

SR 705SR 16 EBS 38th St

S 38th St

130.93

SR 16 EB / S 38th St

132.78

S 56th St

S 38th St

SR 16 HOV Direct Ramp

134.42

131.17131.06LD: 600

Basic500

4 Lanes

Diverge1000

24.0

C31.01,145

D31.27,275

D33.03,270E

38.03,510

B18.8

CC21.35,115

645C

27.0725

C

SR 16 HOV Direct Ramp

132.65132.46132.37131.89

D26.76,330D

32.77520

C D33.33,375

C21.23,740

600Diverge90028.5D785

4 Lanes5 Lanes131.34131.23

5 Lanes 4 Lanes4 Lanes

D27.7

4,745

132.97

SR 16 WB

SR 705

133.35

MergeBasic

Exit 133

Basic20003 Lanes

C18.44,015

B

4,815

Basic Merge1500LA: 350

B17.2505

3 Lanes600

Basic

D28.5

15.0

1,610

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No. of Lanes/LA or LDWB Milepost

Ramp Location

HOV On‐Ramp from I‐5

HOV On‐Ramp to I‐5

# # #

Ramp Location

EB MilepostSegment Type




FFS: Free‐flow speed LA: Length of acceleration lane Existing Mainline LaneLOS: Level of Service LD: Length of deceleration lane Existing On or Off Ramp LaneHCS: Highway Capacity Software LW: Weaving length Future No Build Lanepc/mi/ln: Density is measured in passenger cars per mile per lane

B14.31,695C

28.9

875 1,725

Existing (2018) and Baseline (2040)PM Peak Hour Freeway Analysis


200

1,050Basic / Merge

15002 Lanes

C24.36051695

14.3B

1500Diverge

C28.1

C19.42,300C

22.32,655

Exhibit 3‐6

Basic1500

625Basic

C17.12030

Merge1500LA: 450

B12.5170B

16.05850

22.1D

29.2

Ramp Vol.

SR 16, Milepost 0 to 1.69


Basic900

2 Lanes

Basic / Diverge700

3 LanesC

17.03,025C

22.1985

B16.851,835

Diverge15003 Lanes


LOS C C17.88615

D29.2Density 17.88

1,940 Weave Vol.

A7.35

C19.33

Legend

CC20.43,635

C27.3785

Length of analysis segments are consistent with HCM methodology for basic, weave, merge and diverge.

D GP Vol.24

Volume 4,250 9854,420 725

Notes

Volume 3,455 3,0253,385 360 1,075 1,245

C22.2

A9.1

B14.0

C18.71,950

1.33

3 Lanes LA: 500 3 Lanes LD: 350 2 LanesExisting(2018)PM Peak

LOS B CB14.5670

B15.72,785

C20.6600

C22.2Density 14.5 17.0

0.74Diverge Basic Merge Overlap Diverge

Eastbound SR 16

2 Lanes

Basic400 7001500 2100 800 200 800 200Basic Basic

4 Lanes 3 Lanes4 Lanes

1.69 1.61

Density

LOSVolume

0.59 0.46

1.59 1.53 1.34 0.78 0.44 0.12

S Union Ave Sprague Ave

0.18 0.14

S Union Ave Sprague Ave I‐5 SB / S 38th St

Sprague Ave

0.93 0.78

3003 Lanes

31.66,190

36.1

FExisting(2018)PM Peak

LOS C24.04,535D

24.35,305F

C23.5890D

D29.15,425EBaseline

(2040)PM Peak

Westbound SR 16

PM Peak Hour

4:30 ‐ 5:30

VolumeDensity

Weaving

4 Lanes2300

LD: 3002 Lanes

Regents Blvd/Center St

34.17,265

Basic25003 Lanes

29.7800

Merge1000LA: 500

6,990Basic

N

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Ramp Location

# # #




DensityCExisting

(2018)PM Peak

LOS E39.93,375

20.12,690

VolumeDensity


LOSVolume

Southbound I‐5/ Eastbound SR 16

to S 38th St Collector‐Distributor

PM Peak Hour

4:30 ‐ 5:30I‐5 Southbound

I‐5 Collector‐Distributor, Milepost 0.42 to 1.53


Notes Legend


D GP Vol.24

2 Lanes

Ramp Vol. Existing (2018) and Baseline (2040)PM Peak Hour Freeway Analysis

1,940 Weave Vol.


SR 16 Eastbound

0.421.53LA: 400 2 Lanes 3 Lanes 3 Lanes

S 38th St EB S 38th St WB I‐5 Southbound

A1.2

1,145Basic300

1,040Merge1500

D26.72,375B

14.0

D38.91,000A

4.03

Diverge450

105Basic850

430

D25.92,540DA

D31.13,185C

28.7

S 38th St EB/WB

1.19

25.4

1.47 1.03 0.85 0.61

810Basic10002 Lanes

1,535Weaving1800

8.2

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Chapter 4 Alternatives Analysis This chapter reviews the development and evaluation of options for addressing the study purpose and need. The alternatives analysis was a three-level process that developed transportation options and established the preliminary preferred option for providing improved access to the Tacoma Mall Neighborhood.

4.1 Study Purpose and Need The purpose and need statement for the study as developed by/with the Stakeholder Advisory Committee is provided in Chapter 1 of this report. In summary, the strategies for addressing the needs/performance gaps in the study area focused upon:

• Reducing congestion: Reduce recurring weekday PM peak period congestion along theSouth 38th Street corridor, including a current LOS E signalized intersection at South SteeleStreet, LOS D at South Pine Street, and LOS F at South Fife Street.

• Accommodating growth: Accommodate the adopted regional growth targets of thissubarea aligned with the State Growth Management Act and the Tacoma MallNeighborhood Subarea Plan adopted as a chapter of the current Tacoma ComprehensivePlan .

• Providing mobility: Meet the mobility needs of the neighborhood by supporting connectivityand access, economic development, active transportation, a healthy environment, safety,and sustainability.

4.2 Approach for Developing and Evaluating Strategies and Options

Based upon the purpose and need for the study, a broad range of ideas was identified and progressively screened and refined to identify the preliminary preferred options for further investigation. At each of the three levels of evaluation and screening (Exhibit 4-1), strategies and options were either eliminated from further analyses or they were retained and modified to improve potential performance. The evaluations were more detailed at each level, ultimately relying upon regional traffic forecast modeling and traffic operations simulations models. A summary of each level of evaluation is provided below.

Exhibit 4-1. Three-Level Evaluation and Screening Approach

Chapter 4. Alternatives Analysis


4.2.1 Level 1 Screening The Level 1 screening is documented in detail in the Alternatives Development and Screening Process memorandum (Appendix H). The section below presents a summary of the Level 1 screening.

Twenty-three strategies were developed and screened in the Level 1 fatal flaw screening including strategies previously proposed in the Tacoma Mall Neighborhood Subarea Plan (City of Tacoma, 2018a) and the Tacoma Mall Direct Access Feasibility Study (WSDOT, 2001). As shown in Exhibits 4-2 and 4-3, These solutions are grouped into four categories:

• No Action: A point of comparison that includes baseline and background improvements.

• Transportation Systems Management and Operations (TSMO) Strategies: Include potentially low-cost strategies to reduce general vehicle demand, and systems management strategies like traffic signal coordination to improve system operations.

• Local System Strategies: Include improvements that don’t modify or change access to the freeway. These types of strategies need to be considered prior to exploring access modifications.

• I-5 Access Strategies: Consider potential modifications to access or new access to I-5.

Exhibit 4-2. Description of Strategies for Level 1 Evaluation ID Strategy Description

No Action

NA No Action Assumes baseline investments defined as planned and programmed except for the Tacoma Mall Boulevard on-ramp to I-5 southbound

Transportation System Management Operations (TSMO) Strategies

TSMO 1 Increased transit service and options to the subarea

Subarea study includes relocation of a transit center from the “edge” development toward the center of developed subareas and neighborhoods to increase access and use by pedestrians and cyclists to transit.

TSMO 2 Increased employer-based demand management strategies

Implementation or expansion of employer-based commute trip reduction strategies such as car/vanpool, or parking pricing to reduce employee use of single-occupant vehicles.

TSMO 3 Improved system for bikes and walking Completing systems and connectivity for pedestrians and cyclists to desirable employment and housing destinations. Enhancing connections for pedestrians and cyclists and environments that feel safe for many users. Subarea Plan identifies South Tacoma Way as a regional trail, complete pedestrian and bike emphasis street on South Pine Street and internal loop using South Steele Street, South 36th Street, South Lawrence Street, and South 45th Street. Enhancing South Sprague Street for bikes.

TSMO 4 Other shared-use options Improve and expand use of shared-use mobility options such as scooter share, bike share, and car share.

TSMO 5 Other alternative transit/HOV options Frequent neighborhood transit service or expansion of transportation network companies.

TSMO 6 Freeway ramp metering Expansion of freeway ramp-metering to promote travel time savings for HOVs. Develop as a system.

TSMO 7 Improved traffic signal coordination and system management

Expansion of a broad TSMO system or Intelligent Transportation System such as cameras, detection, and signal coordination.

Local System Strategies

LS 1 Double lefts at South 38th Street/Steele Street

Requires additional southbound left, separation of northbound left, and additional westbound left. Requires additional right-of-way or consider roundabout LS 5.



Exhibit 4-2. Description of Strategies for Level 1 Evaluation ID Strategy Description

LS 2 South Steele Street extension from Costco to south of 35th Street

Identified in 2001 study and completed by 2004.

LS 3 New signala at South 38th/Fife Street intersection and extensions of Fife Street into mall parking area

New grid connection within the mall area and new signal or consider roundabout.

LS 4 Additional northbound through lane at South 38th Street/Steele Street

Added lane would require right-of-way.

LS 5 South 38th Street/South Steele Street roundabouta

Consider roundabout based on WSDOT Design Manual Chapter 1300 – Intersection Control Type.

Access Modification Strategies

A1 Single-lane ramp access and re-channelize Tacoma Mall Boulevarda

Proposed one-way ramp access at Tacoma Mall Boulevard.

A2 Re-channelize Tacoma Mall Boulevarda Two-lane off-ramp from I-5 CD and reduce Tacoma Mall Boulevard to one lane in each direction with traffic signal and roundabout. Or consider signal control of northbound movement only.

A3 Low speed right-turn ramp One-lane off-ramp merge to Tacoma Mall Boulevard allowing only right-turns.

A4 Moderate speed right-turn ramp One-lane off-ramp merge to Tacoma Mall Boulevard allowing only right-turns.

A5 On-ramp One-lane loop on-ramp from Tacoma Mall Boulevard onto southbound I-5 collector.

A6 Double flyover access Separate grade-separated ramps to northbound and southbound Tacoma Mall Boulevard with merges.

A7 Double lane ramp accessa (2001 Preferred Solution) Proposed one-way ramp access with two lanes connecting to Tacoma Mall Boulevard.

A8 48th Street accessa New access (buttonhook) ramps to and from I-5 southbound to Tacoma Mall Boulevard and consider a roundabout.

A9 Reduced speed and direct access ramp realignment

Modification of preferred ramp with modifications to reduce speed.

A10 Single-point or tight diamond interchange

Modify interchange at South 38th Street so that interchange is more compressed; single point with all movements in one intersection; or tight with two intersections located closer together.

A11 Diverging diamond interchange Modify interchange at South 38th Street so that two directions of traffic cross to opposite sides to reduce left turn movements.

Source: Tacoma Mall Neighborhood Subarea Plan (City of Tacoma, 2018a), Tacoma Mall Direct Access Feasibility Study (WSDOT, 2001) a Includes roundabouts for all intersection control evaluations due to their safety, operational, and sustainability benefits (WSDOT Design Manual Chapter 1300 – Intersection Control Type).



Exhibit 4-3. Map of Level 1 Strategies



These strategies were reviewed and screened using three fatal flaw criteria:

1. Meets Study Purpose/Objectives – Would the concept meet the study purpose and need?

2. Required Permits and Approvals – Is the concept likely to receive required permits and approvals?

3. Cost-Effectiveness – Objectively, is the scale of the concept consistent with the benefits that it provides?

The Level 1 screening resulted in selection of eight options for further development in the Level 2 screening. The TSMO strategies were assessed to not adequately meet the study purpose and need as stand-alone strategies. Some local access strategies and access modification strategies did not meet the study purpose and need, or the purpose and need could be more effectively achieved by other strategies. The options for further development were:

• LS 1 - Arterial South 38th Street at Steele Street intersection and corridor improvements including consideration of:

- LS1a - a roundabout

- LS1b - additional left-turn lanes

- LS1c - unconventional arterial intersection improvements such as grade-separating movements

• A 7 - South 38th Street new southbound off-ramp to Tacoma Mall Boulevard and with a roundabout at Tacoma Mall Boulevard

• A 8 - South 48th Street Southbound ramps

• A 9a - South 38th Street “tightened” ramps to reduce speed and increase intersection spacing with an A 9b - optional ramp to Tacoma Mall Boulevard

• A 11 - South 38th Street diverging diamond interchange to increase spacing from adjacent local intersections

All of these selected options were combined with TSMO concepts such as signal timing, HOV ramps, and transit, trail and bike system improvements for further evaluation in the Level 2 screening.

4.2.2 Level 2 Screening This section summarizes the Level 2 Evaluation of Options memorandum (Appendix I).

The eight options approved for further refinement and analyses in the Level 2 evaluation are shown in Exhibits 4-4 and 4-5. Based on the results of the Level 1 fatal flaw screening, the eight options consist of local transportation system concepts and I-5 freeway access modification concepts. The TSMO concepts were found to be insufficient by themselves to meet the study purpose and need, so where appropriate they were added to the eight Level 2 options. When refining each option, TSMO concepts, such as signal timing, HOV ramps, and transit, trail, and bike system improvements, were considered to enhance the performance to address the study purpose and need.

Exhibit 4-4 shows the new identifiers for options that were used in the Level 2 evaluation, along with the original identifiers used in the Level 1 fatal flaw screening. In the table, the titles have been simplified and a description is provided. In the memorandum (Appendix I), detailed sheets



are provided for each Level 2 option that list potential TSMO concepts proposed to be part of each option.

Exhibit 4-4. Options for Level 2 Evaluation Level 2 Option

Identifier

Level 1 Strategy Identifier Title of Option Description of Option

A LS1a Construct a roundabout at the intersection of South 38th Street and South Steele Street

Replaces the existing traffic signal with a roundabout. In certain cases, roundabouts can move more traffic and reduce collisions.

B LS1b Add turn lanes at the intersection of South 38th Street and South Steele Street

Adds capacity to the intersection by providing two left-turn lanes on each approach.

C LS1c Build a tunnel along South 38th Street at the intersection of South Steele Street

Builds a grade-separated tunnel for eastbound traffic through the intersection. Routing eastbound vehicles through the tunnel will improve traffic signal timing for vehicles traveling in other directions.

D A7 Create a new off-ramp from I-5 to Tacoma Mall Boulevard

Includes a new direct ramp from southbound I-5 to Tacoma Mall Boulevard. Vehicles would be able to access the mall without passing through the intersection at South 38th Street and South Steele Street.

E A8 Off-ramp to South 48th Street Provides new access between I-5 southbound and Tacoma Mall Boulevard near the South 48th Street overpass.

F A9 Realign the I-5/South 38th Street interchange ramps

Replaces the high-speed curves at the existing South 38th Street interchange with realigned ramps that meet South 38th Street at T-intersections. This option also includes new traffic signals at the T-intersections.

G A7+A9 Realign the I-5/South 38th Street interchange ramps and create a new off-ramp from I-5 to Tacoma Mall Boulevard

Combines Options D and F to provide a new direct off-ramp from I-5 to Tacoma Mall Boulevard, as well as realigned ramps at the I-5/South 38th Street interchange.

H A11 Reconfigure the I-5/South 38th Street interchange as a diverging diamond

Reconstructs the existing South 38th Street interchange in a diverging diamond configuration to remove left-turn movements to and from the highway, resulting in reduced vehicle conflicts.

Twelve evaluation criteria were defined and applied to the Level 2 evaluation. The evaluation criteria are listed below by category.

Transportation Performance

• Queues onto Collector-Distributor Roads & Mainline • Queues at South 38th Street/South Steele Street Intersection • Access Travel Time Savings • Access Delay Reduction • Regional Access Capacity • Modal Choices

Design Development

• Consistency with Plans and Policies • Forward Compatibility • Property Acquisition • Cost • Cost-Effectiveness • Fundability



Based on the overall scoring, Options D (Off-Ramp to Tacoma Mall Boulevard) and E (Off-Ramp to South 48th Street) were the best/highest-performing of all eight options across the 12 criteria in the Level 2 evaluation. Options D and E both help divert traffic from South 38th Street and the South 38th/South Steele intersection. They also add capacity for access into the neighborhood. Of the local street options, Option B (Add Turn Lanes at South 38th Street/South Steele Street) was the best/highest-performing option because it improves the operation of the intersection with less impact to properties and at a lower cost.

Based on the results of the Level 2 evaluation, Options D, E, and B were recommended for further analyses in the final Level 3 evaluation. Options D and E are much higher-performing options than the other options. Option B, which expands capacity at the intersection at South 38th Street/South Steele Street by adding turns lanes and modifying the traffic signal, was carried forward as a local access option to provide comparison with freeway access Options D and E.

4.2.3 Level 3 Screening This section summarizes the Level 3 Evaluation of Options memorandum provided in Appendix J. The three options approved for further refinement and analyses in the Level 3 evaluation are shown in Exhibits 4-6 and Exhibit 4-7.

Exhibit 4-6. Options for Level 3 Evaluation Option

Identifier Title of Option Description of Option B Add turn lanes at the intersection

of South 38th Street and South Steele Street

Adds capacity to the intersection by providing two left-turn lanes on each approach.

D Create a new off-ramp from I-5 to Tacoma Mall Boulevard

Includes a new direct ramp from southbound I-5 to Tacoma Mall Boulevard. Vehicles would be able to access the mall without passing through the intersection at South 38th Street and South Steele Street.

E Off-ramp to South 48th Street Provides new access between I-5 southbound and Tacoma Mall Boulevard near the South 48th Street overpass.

The Level 3 evaluation methodology included more detailed criteria than previous screenings. Transportation performance measures at Level 3 used quantitative measures based on the traffic forecast model and traffic operations simulation models. The traffic forecasting and operations analyses are presented in more detail in a separate chapter.

Eight evaluation criteria were defined and applied to the Level 3 evaluation, listed and described below by category.

Transportation Performance

• Queues onto Collector-Distributor Roads & Mainline (Southbound I-5 off-ramp queue lengths)

• Queues at South 38th Street/South Steele Street Intersection (Local Street Queues at South 38th Street/South Steele Street to Facilitate Mall Access)

• Access Travel Time Savings (Travel Time Savings from Southbound I-5 to Central Point in Mall)

• Access Delay Reduction (Vehicle-delay Reduction at Key Mall Access Intersections)



Design Development

• Neighborhood Plan Access (Proximity of New Neighborhood Access to Center of Development)

• Neighborhood Plan Design Guidelines (Compliance and Consistency with Neighborhood Plan Streetscape Design)

• Right-of-way Acquisition (Total Right-of-way Necessary to Support the Option)

• Planning Level Cost (Planning Level Cost Estimates Using the WSDOT tool)

All planning-level cost estimate ranges are provided in 2018 dollars. The planning-level cost estimates include costs for preliminary engineering, environmental mitigation, right-of-way, and construction. Planning-level cost estimates were developed using the WSDOT Planning Level Cost Estimate tool and/or cost information from analogous constructed projects. For cost estimates for planning level comparisons using this tool, WSDOT states that the “planning level cost estimates are based on little or no design work, hence intended for use for planning purposes only.” The cost numbers developed for Level 3 evaluation are:

• Option B, $1 to $3 million • Option D, $18 to $25 million • Option E, $35 to $50 million

The low and high range of costs shown are values at 10 percent below and 20 percent above the planning-level cost estimates that were developed.

The key findings in the Level 3 evaluation were:

• Option B - Requires the least amount of right-of-way and has the lowest cost - Provides relatively low long-term transportation benefit to the neighborhood - Inconsistent with Tacoma Mall Neighborhood Subarea Plan

• Option D - Provides the most transportation benefit, relative to the other options - Distributes vehicle trips away from South 38th Street, but still within Tacoma Mall

Neighborhood core - Most consistent with Tacoma Mall Neighborhood Subarea Plan

• Option E - Improves access to/from I-5 Southbound - Has the highest cost and would modify existing access to I-5 - Less consistent with Tacoma Mall Neighborhood Subarea Plan

Based on the results of the Level 3 evaluation and input from Stakeholder Advisory Committee Meeting 4, Option D is the preferred strategy for further review in the next steps beyond this study (in the Access Revision Report investigation). Option D would provide access near the middle of the neighborhood and divert more traffic from the South 38th Street/South Steele Street intersection. Option D can also be implemented at a lower cost than Option E. Option E will also be retained as an alternate for further comparison in the Access Revision Report investigation.


Chapter 5 Preferred Strategy and Next Steps This feasibility study covered two steps in the Practical Solutions approach shown in Exhibit 5-1 below. The study considered and defined the performance gaps to meet future access needs in the Tacoma Mall Neighborhood adjacent to I-5 in Tacoma, Washington. This study also identified and evaluated a broad range of potential strategies and options for addressing the defined performance gaps.

Exhibit 5-1. Steps in Practical Solutions Approach Completed by Study

Based on this analysis, transportation system performance gaps cannot be sufficiently met solely with transportation system management operations, or local intersection or local roadway improvements.

The following sections summarize the preferred strategy and optional strategy for addressing transportation system performance gaps, and the next steps in the Practical Solutions approach.

5.1 Preferred Strategy Recommendation This study has established that to address the transportation system performance gaps for the Tacoma Mall Access study area, Option D, which includes a direct access from the southbound I-5 CD roads, is recommended as the preferred strategy. The Option D strategy provides the best performance for providing additional access capacity into the Tacoma Mall Neighborhood and diverting traffic from the South 38th Street/South Steele Street intersection.

A graphic depiction of the preferred strategy is shown in Exhibit 5-2. The alignments in Exhibit 5-2 show a wide and fuzzy yellow line for the connection from southbound I-5 to Tacoma Mall Boulevard because the final alignments will be established later. During the assessment of options in the I-5/Tacoma Mall Boulevard Access Feasibility Study, various concept alignments were developed to confirm general feasibility. There are several ways to develop horizontal and vertical alignments to meet the intents of the options. For example, Option D could be developed to align either over or under the southbound I-5 on-ramp from South 38th Street.

The horizontal alignment and location for connecting to Tacoma Mall Boulevard can also be varied. The horizontal alignment could connect further north on Tacoma Mall Boulevard or further south toward South 48th Street. More detailed design development and evaluation of those options will be conducted in the Access Revision study phase.

Chapter 5. Preferred Strategy and Next Steps


Exhibit 5-2. Preferred Strategy for I-5/Tacoma Mall Boulevard Access



In the graphic depictions for each option, all intersections are conceptual for comparison purposes for the Level 3 evaluation. If option(s) are selected for implementation, a reassessment of the type of intersection control will be performed during the preliminary design phase. For WSDOT projects, this is known as the Intersection Control Evaluation review and is defined in the WSDOT Design Manual, Chapter 1300, Intersection Control Type (https://www.wsdot.wa.gov/publications/manuals/fulltext/M22-01/1300.pdf). In an Intersection Control Evaluation analysis, various intersection control types would be considered, including intersections with signal control, roundabouts, and other emerging intersection control types such as displaced left-turn and restricted-crossing U-turn intersections. For any of these options that are ultimately selected for inclusion in further Access Revision investigations, the intersection control types would be reassessed during project delivery and potentially refined.

5.2 Optional Strategy for Consideration Aspects of Option E may also be considered in the Access Revision study phase. An Intersection Control Evaluation analysis may be conducted at the location of the off-ramp connection from the CD road to Tacoma Mall Boulevard, and the concept of including an on-ramp to the CD road from Tacoma Mall Boulevard may be further evaluated. Option E had potentially greater property impacts and costs along Tacoma Mall Boulevard and farther south to connect with the CD road at the South 56th Street interchange. In the next steps of analysis, this concept could be considered in the integration with long-term plan improvements for the I-5 corridor.

5.3 Next Steps The next steps in the Practical Solutions approach will include additional refinement of the preferred strategy, project scoping, and assignment of resources as shown on Exhibit 5-3.

Exhibit 5-3. Next Steps in Practical Solutions Approach

These future steps are currently unfunded. The steps will include:

Environmental review to assess and mitigate potential environmental effects. Development of the Basis for Design documentation. Additional preliminary design and refinement of the strategy (including Intersection

Control Evaluation). Completion of the Access Revision Report (including quantitative safety analysis) to

confirm the access improvements. Continued community engagement, including adjacent property owners. Right-of-way analyses and acquisition. Design documentation and development of bid documents.



Construction of the improvements.

All future phases of this project are unfunded. Potential funding sources for the Access Revision Report, the Environmental Evaluation, and construction phases could include regional grants, partnerships with public and private partners, and legislative appropriation similar to the source of funding for this feasibility study. The project construction phase would also be eligible to compete for Federal Surface Transportation Program funding. The City of Tacoma is presumed to be lead agency for identifying funding opportunities moving forward.


Chapter 6 References City of Tacoma. 2018a. Tacoma Mall Neighborhood Subarea Plan. https://cms.cityoftacoma.org/Planning/Tacoma%20Mall%20Subarea/Tacoma%20Mall%20Subarea%20Plan%20(May%202018).pdf. May 15.

City of Tacoma. 2018b. Six Year Comprehensive Transportation Program. Amended 2018 and 2020-2024.

City of Tacoma. 2019. One Tacoma: Comprehensive Plan. https://www.cityoftacoma.org/government/city_departments/planning_and_development_services/planning_services/one_tacoma__comprehensive_plan. Accessed June 25, 2019.

Federal Highway Administration (FHWA). 2017. Revised Federal Highway Administration Access Policy.

National Cooperative Highway Research Program. 2014. NCHRP Report 765 – Analytical Travel Forecasting Approaches for Project-Level Planning and Design. https://www.princeton.edu/~alaink/Orf467F14/AnalyticalTravelForecastingNCHRP765_091314.pdf.

Pierce County. 2015. Pierce County Comprehensive Plan. https://www.co.pierce.wa.us/950/Comprehensive-Plan.

Pierce Transit. 2016. Destination 2040 - Pierce Transit Long Range Plan.

Pierce Transit. 2018. Pierce Transit Transit Development Plan: 2017-2022. https://www.wsdot.wa.gov/publications/manuals/fulltext/M3079/tdps/Pierce.pdf.

Puget Sound Regional Council (PSRC). 2010. Transportation 2040: Toward a Sustainable Transportation System. https://www.psrc.org/sites/default/files/t2040finalplan.pdf. May 20.

Puget Sound Regional Council (PSRC). 2013. Regional Centers Monitoring Report.

Puget Sound Regional Council (PSRC). 2019. Draft VISION 2050: A Plan for the Central Puget Sound Region. https://www.psrc.org/sites/default/files/draft-vision2050-plan.pdf. July.

Sound Transit. 2008. Sound Transit 2: A Mass Transit Guide (ST2). https://www.soundtransit.org/sites/default/files/documents/st2_plan_web.pdf. July.

Sound Transit. 2014. Regional Transit Long-Range Plan. https://www.soundtransit.org/sites/default/files/documents/2015123_lrpupdate.pdf.

Sound Transit. 2015. Sound Transit 3 (ST3). http://soundtransit3.org/document-library.

Transportation Research Board. 2010. HCM2010: Highway Capacity Manual.

Washington State Department of Transportation (WSDOT). 1999. Tacoma High-Occupancy Vehicle Project Access Point Decision Report.

Washington State Department of Transportation (WSDOT). 2001. Tacoma Mall Direct Access Feasibility Study.

Washington State Department of Transportation (WSDOT). 2012. Tacoma/Pierce County High-Occupancy Vehicle Program Supplemental Interchange Justification Report.

Washington State Department of Transportation (WSDOT). 2017. HOV Feasibility Study I-5: JBLM to South 38th Street.

https://cms.cityoftacoma.org/Planning/Tacoma%20Mall%20Subarea/Tacoma%20Mall%20Subarea%20Plan%20(May%202018).pdf

https://cms.cityoftacoma.org/Planning/Tacoma%20Mall%20Subarea/Tacoma%20Mall%20Subarea%20Plan%20(May%202018).pdf

https://www.cityoftacoma.org/government/city_departments/planning_and_development_services/planning_services/one_tacoma__comprehensive_plan

https://www.cityoftacoma.org/government/city_departments/planning_and_development_services/planning_services/one_tacoma__comprehensive_plan

https://www.princeton.edu/%7Ealaink/Orf467F14/AnalyticalTravelForecastingNCHRP765_091314.pdf

https://www.princeton.edu/%7Ealaink/Orf467F14/AnalyticalTravelForecastingNCHRP765_091314.pdf

https://www.co.pierce.wa.us/950/Comprehensive-Plan

https://www.wsdot.wa.gov/publications/manuals/fulltext/M3079/tdps/Pierce.pdf

https://www.psrc.org/sites/default/files/t2040finalplan.pdf

https://www.psrc.org/sites/default/files/draft-vision2050-plan.pdf

https://www.soundtransit.org/sites/default/files/documents/st2_plan_web.pdf

https://www.soundtransit.org/sites/default/files/documents/2015123_lrpupdate.pdf

http://soundtransit3.org/document-library

Chapter 6. References


Washington State Department of Transportation (WSDOT). 2019a. Design Manual. https://www.wsdot.wa.gov/Publications/Manuals/M22-01.htm. February.

Washington State Department of Transportation (WSDOT). 2019b. WSDOT Corridor Sketch Initiative. https://www.wsdot.wa.gov/planning/corridor-sketch-initiative.

https://www.wsdot.wa.gov/Publications/Manuals/M22-01.htm

https://www.wsdot.wa.gov/planning/corridor-sketch-initiative