sr 410 234th avenue e to garrett street€¦ · 08/02/2019 · the state route (sr) 410 – 234th...

February 2019 │ 554-1631-120

SR 410 – 234th Avenue E to Garrett Street Congestion Study SR 410 MP 16.82 to MP 24.50

Prepared for

Olympic Region Multimodal Planning Olympia, WA 98504-7440

Prepared by

Parametrix 719 2nd Avenue, Suite 200 Seattle, WA 98104 T. 206.394.3700 F. 1.855.542.6353 www.parametrix.com

http://www.parametrix.com/

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SR 410 – 234th Avenue E to Garrett Street Congestion Study

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TABLE OF CONTENTS EXECUTIVE SUMMARY .................................................................................................................. ES-1

Background and Context ..................................................................................................................... ES-1 Purpose and Need ............................................................................................................................... ES-1 Study Process ...................................................................................................................................... ES-2 Strategy Development and Evaluation ............................................................................................... ES-2 Recommendations .............................................................................................................................. ES-4

Near-term Strategies (5 Year) ..................................................................................................... ES-4 Mid-term Strategies (10 Year) .................................................................................................... ES-5 Long-term Recommendations (20 Year) ..................................................................................... ES-5 Strategies Beyond 20 years ......................................................................................................... ES-6 White River Bridge ...................................................................................................................... ES-6

Next Steps ........................................................................................................................................... ES-6 1. INTRODUCTION AND BACKGROUND .................................................................................... 1-1

1.1 Introduction .................................................................................................................................. 1-1 1.2 Purpose and Need ......................................................................................................................... 1-1 1.3 Previous Studies ............................................................................................................................ 1-2

2. STUDY PROCESS .................................................................................................................. 2-1 3. STAKEHOLDER AND COMMUNITY ENGAGEMENT ................................................................. 3-1

3.1 Stakeholder Meetings ................................................................................................................... 3-1 3.2 Other Stakeholder Outreach ......................................................................................................... 3-1 3.3 Online Survey ................................................................................................................................ 3-1 3.4 Open Houses ................................................................................................................................. 3-2

4. ROUTE CHARACTERISTICS .................................................................................................... 4-1 4.1 Study Area ..................................................................................................................................... 4-1 4.2 Land Use ........................................................................................................................................ 4-1 4.3 Existing Roadway Network ........................................................................................................... 4-1

4.3.1 State and National Highway Classifications ..................................................................... 4-1 4.3.2 Freight and Goods Transportation System Classification ................................................ 4-3 4.3.3 Access Management Plan Classifications ........................................................................ 4-3 4.3.4 Intelligent Transportation System Highway Corridor ...................................................... 4-4 4.3.5 Existing Roadway Conditions ........................................................................................... 4-5 4.3.6 Utilities ............................................................................................................................. 4-5 4.3.7 Non-motorized Facilities .................................................................................................. 4-5 4.3.8 Public Transportation....................................................................................................... 4-6

5. EXISTING AND FORECASTED TRAFFIC CONDITIONS .............................................................. 5-1 5.1 Data Collection .............................................................................................................................. 5-1

5.1.1 Existing Traffic Volumes ................................................................................................... 5-1 5.1.2 Forecasted Traffic Volumes ............................................................................................. 5-5 5.1.3 Existing and Baseline Traffic Operations ....................................................................... 5-13

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6. CRASH ANALYSIS ................................................................................................................. 6-1 6.1 Existing Crash History .................................................................................................................... 6-1 6.2 Roundabouts ................................................................................................................................. 6-1

7. ENVIRONMENTAL CONDITIONS ........................................................................................... 7-1 7.1 Environmental Assets to Protect Roadway Infrastructure ........................................................... 7-1 7.2 Promote Clean Water ................................................................................................................... 7-6 7.3 Ensure Noise Reduction ................................................................................................................ 7-6 7.4 Fish Passage and Wildlife .............................................................................................................. 7-6

8. STRATEGY DEVELOPMENT AND EVALUATION PROCESS ........................................................ 8-1 8.1 Strategy Development and Initial Screening Process ................................................................... 8-1 8.2 Detailed Evaluation of Strategies .................................................................................................. 8-4

8.2.1 Performance Metrics ....................................................................................................... 8-4 8.2.2 Performance Evaluation ................................................................................................ 8-10

9. RECOMMENDED IMPROVEMENT STRATEGIES ..................................................................... 9-1 9.1 Near-term Strategies (2025) ......................................................................................................... 9-1 9.2 Mid-term Strategies (2030) .......................................................................................................... 9-1

9.2.1 Priority Mid-term Strategies ............................................................................................ 9-2 9.2.2 Additional Mid-term Strategies ....................................................................................... 9-3

9.3 Long-term Strategies (2040) ......................................................................................................... 9-4 9.3.1 Strategies Beyond 2040 ................................................................................................... 9-4 9.3.2 White River Bridge ........................................................................................................... 9-4

9.4 Planning Level Costs ...................................................................................................................... 9-5 10. NEXT STEPS ....................................................................................................................... 10-1 LIST OF FIGURES 2-1 Practical Solutions Study Process ................................................................................................. 2-1 2-2 WSDOT Practical Solutions Framework ........................................................................................ 2-2 4-1 Study Area ..................................................................................................................................... 4-2 5-1 Existing 2018 AM Peak Hour Volumes .......................................................................................... 5-2 5-2 Existing 2018 PM Peak Hour Volumes .......................................................................................... 5-3 5-3 Existing 2018 Weekend Peak Hour Volumes ................................................................................ 5-4 5-4 Forecasted Future Traffic Volumes at Screenlines ....................................................................... 5-6 5-5 Near-Term 2025 AM Peak Hour Volumes ..................................................................................... 5-7 5-6 Near-Term 2025 PM Peak Hour Volumes ..................................................................................... 5-8 5-7 Mid-Term 2030 AM Peak Hour Volumes ...................................................................................... 5-9 5-8 Mid-Term 2030 PM Peak Hour Volumes .................................................................................... 5-10 5-9 Long-Term 2040 AM Peak Hour Volumes ................................................................................... 5-11 5-10 Long-Term 2040 PM Peak Hour Volumes ................................................................................... 5-12 5-11 2018, 2025, 2030, and 2040 AM Peak Hour Level of Service ..................................................... 5-14 5-12 2018, 2025, 2030, and 2040 PM Peak Hour Level of Service ..................................................... 5-15 5-13 2018, 2025, 2030, and 2040 Weekend Peak Hour Level of Service ........................................... 5-16


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TABLE OF CONTENTS (CONTINUED)

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7-1a SR 410 Congestion Corridor Study – Environmental Conditions Summary .................................. 7-2 7-1b SR 410 Congestion Corridor Study – Environmental Conditions Summary .................................. 7-3 7-2a SR 410 Congestion Corridor Study – Environmental Conditions Summary .................................. 7-4 7-2b SR 410 Congestion Corridor Study – Environmental Conditions Summary .................................. 7-5 8-1 Screening and Evaluation Process ................................................................................................ 8-1 8-2 Initial Screening Process ............................................................................................................... 8-2 8-3a SR 410 Congestion Corridor Study – Environmental Conditions Summary .................................. 8-8 8-3b SR 410 Congestion Corridor Study – Environmental Conditions Summary .................................. 8-9 LIST OF TABLES 1-1 Previous Studies Identified along SR 410 Corridor ....................................................................... 1-2 4-1 Managed Access Section on SR 4101 ............................................................................................ 4-4 5-1 SR 410 Travel Times between 234 Avenue E and Garrett Street (minutes) ............................... 5-17 6-1 Severity of Crash - Intersections (2013-2017) .............................................................................. 6-1 6-2 Severity of Crash – By Crash Type (2013-2017) ............................................................................ 6-1 6-3 Severity of Crash – By Crash Type (2013-2017) ............................................................................ 6-1 8-1 Performance Measures and Metrics ............................................................................................ 8-5 9-1 Recommended Near-Term Strategies .......................................................................................... 9-1 9-2 Planning Level Cost Estimates ....................................................................................................... 9-6

APPENDICES A Study Management Plan and Communications Plan B Stakeholder Meeting Summaries C Online Survey Results and October 2018 Open House Material D Turning Movement Counts E Travel Demand Modeling Data and Forecasts F Traffic Modeling Methods and Assumptions G Traffic Analysis (Synchro and Sidra) LOS and Delay Results H Safety Analysis I Screening and Evaluation Results

J White River Bridge Replacement Study Memo


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ACRONYMS AND ABBREVIATIONS ADT Average Daily Traffic

ARL Agricultural Resource Land

BIA Bureau of Indian Affairs

BMPs Best Management Practices

CWA Clean Water Act

CWI Pierce County Wetland Inventory

CZMA Coastal Zone Management Act

DART Demand Area Response Transit (Dial-A-Ride)

Ecology Washington State Department of Ecology

EPA U.S. Environmental Protection Agency

FEMA Federal Emergency Management Agency

FGTS Freight and Goods Transportation System

FTA Federal Transit Administration

GIS Geographic Information System

HSP Highway System Plan

HSS Highway of Statewide Significance

IIHS Insurance Institute for Highway Safety

ITS Intelligent Transportation Systems

LOS Level of Service

LUST Leaking Underground Storage Tank

MP Milepost

MPH Miles per hour

NWI National Wetlands Inventory

PEL Planning and Environmental Linkage

PHS Priority Habitats and Species

PSRC Puget Sound Regional Council

PTBA Pierce County Public Transportation Benefit Area

PTIC Public Transportation Improvement Conference

RCW Revised Code of Washington

RSH Regionally Significant Highway

SFHA Special Flood Hazard Area


ACRONYMS AND ABBREVIATIONS (CONTINUED)

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SR 410 Study State Route 410 – 234th Avenue E to Garrett Street Corridor Congestion Study

SR State Route

TDM Transportation Demand Management

TSL Type, Size, and Location

TSMO Transportation Systems Management and Operations

TTI Time Travel Index

UST Underground Storage Tank

v/c volume-to-capacity

WAC Washington Administrative Code

WSDOT Washington State Department of Transportation

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EXECUTIVE SUMMARY Background and Context The State Route (SR) 410 – 234th Avenue E to Garrett Street Corridor Congestion Study (SR 410 Study) MP 16.82 to MP 24.50 is a planning level effort that assesses current and future conditions along the corridor. The study uses a practical solutions approach to identify potential strategies to relieve congestion and improve travel time, predictability, and highway operations.

Existing mobility concerns include traffic congestion on the highway, as well as across the existing White River Bridge. Congestion occurs during both morning and evening commutes and on weekends due to commuter and recreational traffic.

In 2017, the Washington State Legislature provided funding for this study to identify potential improvement strategies to address the traffic congestion. The proviso stated, “Among the options studied as part of the SR 410 Corridor Study, the department shall examine the mobility and safety benefits of replacing or expanding the White River bridge between Enumclaw and Buckley to four lanes and removing the trestle.” No design or construction funds were identified at the time of the study.

Purpose and Need This study identifies ranked strategies to address improvements (including the White River Bridge), which would improve travel time, predictability, and operations of SR 410 between 234th Avenue E in Bonney Lake, through Buckley to Garrett Street in Enumclaw. The study uses the Washington State Department of Transportation’s (WSDOT’s) Practical Solutions approach. This study is consistent with WSDOT’s strategic plan, and the Washington State Legislature’s transportation system policy goals established in Revised Code of Washington (RCW) 47.04.280 to integrate transportation performance at the local, regional, and state government levels. The transportation system policy goals are economic vitality, preservation, safety, mobility, environment, and stewardship.

The study began in January 2018 with the first of five stakeholder meetings in May 2018. With the assistance of the stakeholder group, the study effort was guided by critical statements approved at the initial stakeholder meeting. These statements include the following:

• Problem Statement – Traffic volume on SR 410 between 234th Avenue E in Bonney Lake, through Buckley to Garrett Street in Enumclaw exceeds roadway capacity, leading to traffic congestion.

• Purpose of the Study – Identify ranked strategies to address roadway improvements identified performance gaps (including the White River Bridge) that improve travel time, predictability, and operations of SR 410 between 234th Avenue E in Bonney Lake, through Buckley to Garrett Street in Enumclaw.

• Vision Statement – Provide a safe and efficient multimodal transportation system that improves mobility by relieving congestion consistent with anticipated growth.


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Study Process The SR 410 Study identifies strategies to address identified performance gaps along SR 410 between 234th Avenue E in Bonney Lake, through Buckley to Garrett Street in Enumclaw using WSDOT’s Practical Solutions approach. Practical Solutions is a performance-based approach to multimodal transportation decision-making. This data-driven approach uses the latest tools and performance measures to seek lower-cost efficiencies in operating highways, ferries, transit, and rail; reduce travel demand to save money; and reduce the need for building costly new infrastructure.

Key study constraints and assumptions included: • This study focuses on the SR 410 corridor between 234th Avenue SE and Garrett Street. • The study uses the WSDOT Practical Solutions approach to identify near-, mid-, and long-range

needs in the corridors and possible strategies to address those needs. • The strategies will be ranked. • The Puget Sound Regional Council (PSRC) travel demand model will be used for the

modeling effort.

The major work elements completed as part of this study include: • Stakeholder and Community Engagement • Travel Demand Modeling and Traffic Analysis • Crash Analysis • Environmental Analysis • Strategy Development and Evaluation

Strategy Development and Evaluation Using information from the analysis of the existing and future-year No-Build conditions, and local knowledge of traffic operations in the area, the stakeholder team developed strategies to address congestion and delay along the SR 410 corridor. The strategy development included a Practical Solutions approach to develop low-cost strategies in addition to higher-cost capital projects.

A multi-step screening process was used to identify, screen, evaluate, and rank potential strategies. The first step in the screening process was to generate ideas with potential to address the needs of the corridor. Ideas were generated based on input from previous studies, stakeholders, the consultant team, the public, and updated analysis.

Next, the study team evaluated the list of strategies through a high-level screening process to identify which strategies meet WSDOT goals and policies and study goals. Initial screening results were reviewed and agreed to by the stakeholder group. The initial screening was based on planning-level and qualitative assessments of the proposed strategies.

The strategies that met three initial screening criteria were presented at the June 2018 stakeholder meeting. Based on discussions with the stakeholders, ideas that passed the initial screen were further divided into several categories including:

• Ideas that passed initial screening but fall outside WSDOT jurisdiction. • Ideas advanced to detailed screening but evaluated qualitatively. • Ideas to advance to detailed screening and evaluated quantitatively with performance metrics.


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WSDOT, in agreement with the stakeholders, identified the following strategies that would advance into the detailed screening for quantitative analysis and evaluation. The strategies evaluated quantitatively with performance metrics include:

• Transportation demand management (TDM) strategies. • Add a right-turn pocket/lane at the SR 410 and Park Avenue intersection. • Install a roundabout at the SR 410 and 234th Avenue E (233rd Avenue E) intersection. • Convert the SR 410 and Mundy Loss intersection from a signal to a roundabout. • Convert the SR 410 and Main Street intersection from a signal to a roundabout. • Convert the SR 410 and Park Avenue intersection from a signal to a roundabout. • Convert the SR 165 and SR 410 intersection from a signal to a roundabout. • Re-align the SR 410 and Semanski Street (S 252nd Street) intersection and install a roundabout. • Add left-turn pockets at the SR 410 and Warner Avenue intersection and remove the split

signal phasing. • Install a roundabout at the SR 410 and Cole Street intersection. • Convert the SR 410 and Mud Mountain Road (241st Street) intersection to one way northbound

and install a roundabout at the SR 410 and 244th Avenue SE intersection. • Replace or expand the White River Bridge. • Widen SR 410 to three or four lanes. • Install Intelligent Transportation Systems (ITS) devices along the SR 410 corridor.

As part of the detailed screening process, the study team used WSDOT’s Draft Mobility Performance Framework to identify relevant data-driven performance measures and metrics that would help measure how different strategies address the study needs.

Using the performance metrics, strategies were analyzed from an overall corridor performance perspective with the goal of identifying and prioritizing strategies that most helped relieve congestion and improve travel times over the entire corridor and not just at individual locations. The proposed metrics evaluated congestion, travel times, the potential to reduce crashes, and environmental factors. Cost and implementation considerations were also considered to help evaluate and prioritize potential strategies.

The individual scores for the three performance metrics (mobility, safety, and environmental) were combined into a “total performance score” for each strategy. A total performance score was calculated for the near-, mid-, and long-term analysis years for each strategy analyzed. The performance scores range from 0-30, with a score of 30 being the best possible performance score.

In summary, the results of the detailed performance analysis indicated: • Signals at the intersections of Park Avenue and Main Street are the primary constraints on the

corridor. Queuing from these intersections spills back over the White River Bridge past 244th Avenue SE during the PM peak hour.

• Addressing the congestion originating at Park Avenue and Main Street will help improve travel times and extend the operational functionality of the White River Bridge.

• Converting the existing signals at Park Avenue and Main Street to roundabouts will add capacity at these intersections, improve operations, reduce high severity crashes, relieve congestion, and improve travel times without the need to widen the entire highway in the near- or mid-term time period.


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• Converting other existing signals to roundabouts in the future will provide additional capacity along the highway without the need to widen the entire highway in the near- or mid-term time period.

• Widening of the SR 410 corridor would relieve congestion and improve travel times, but it is not feasible in the near- or mid-term timeframe due to funding decisions and economic justifications.

The analysis also indicated that several strategies, while low-cost, did not offer any substantial performance benefit to the corridor. These strategies included:

• Adding left-turn pockets on Warner Avenue and removing the split phase signal timing. • Providing center turn lanes at Wheeler Avenue, Hinkleman Road, and 254th Avenue SE. • Installing signals at Cole Street, 254th Avenue SE, and 262nd Avenue SE. • Installing a roundabout at 262nd Avenue SE.

Other strategies were evaluated and prioritized into near-, mid-, and long-term recommended strategies based on 1) ability to improve corridor performance, and 2) the practicality of potential funding and construction timelines for each strategy.

Recommendations The final screening process and list of recommended improvement strategies was presented to the stakeholders for concurrence. Results and recommendations were also presented to the public in at open house. The recommendations align with WSDOT’s Practical Solutions approach of implementing demand management and operational improvements first, then investing in capital projects. With all future strategies, specifically mid- and long-term, WSDOT will reevaluate the investment value and benefit before proceeding with a project level design.

Near-term Strategies (5 Year) Recommended near-term strategies include the following:

• TDM strategies aimed at changing travel behavior rather than expanding vehicle capacity to meet travel demand (e.g., promotion of work hour changes, rideshare options, parking policies, park-and-pool lots, and telecommuting).

• Intelligent Transportation Systems (ITS) improve transportation safety and mobility using advanced wireline and wireless communications technologies. Strategies include electronic traveler information, Highway Advisory Radio, and road and weather information systems.

• Active transportation is any self-propelled, human-powered mode of transportation, such as walking or bicycling. Improving bicycle and pedestrian facilities can encourage active transportation such as children biking to school or employees walking to work. Strategies include Safe Routes to School programs, comprehensive street design that includes “complete streets,” and providing safe and convenient bike and pedestrian connections to parks and recreation areas, including the Foothills Trail. WSDOT should coordinate with local jurisdictions to the greatest extent possible to provide technical services and funding assistance in support of active transportation projects.


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• WSDOT Incident Management resources clear traffic incidents quickly, minimizing congestion and the potential for secondary incidents. Strategies include multiple shoulder pullout areas and incident response resources during peak travel times.

• Add a westbound right-turn lane at the SR 410 and Park Avenue intersection.

Mid-term Strategies (10 Year) The key priority for the mid-term strategies is to improve intersection operations on either side of the White River Bridge, specifically the intersections of Park Avenue, Main Street, 241st Avenue SE, and 244th Avenue SE. Key mid-term recommendations include:

• Convert signals at Park Avenue and Main Street to roundabouts. • Install roundabout at 244th Avenue SE and close access at SR 410/241st Avenue SE.

Replacing the existing signals at Park Avenue and Main Street with roundabouts adds capacity along SR 410 at intersections, improving operations and travel times along the highway, reduces high-severity crashes and significantly reducing westbound queues without the need to add additional capacity over the White River or widen the entire highway until the long term.

Additional mid-term recommendations include: • Add storage or capacity at the SR 410 and SR 165 intersection by extending the westbound

left-turn pocket, or converting the signal to a roundabout. • Convert the following signals to roundabouts:

SR 410 and Mundy Loss Road intersection.

SR 410 and 233rd Avenue SE (234th Avenue SE) intersection. • Realign the SR 410 and Semanski Street S and SR 410 and 252nd Avenue SE intersections and

install a roundabout.

Long-term Recommendations (20 Year) Recommended long-term strategies involve widening the SR 410 corridor to add more lanes. Results of the detailed screening analysis showed that widening the highway through Buckley would add sufficient capacity to meet the 2040 forecasted traffic demand. Adding additional capacity over the White River would not be needed until after the planning horizon of this study (year 2040).

Several options of widening the highway were evaluated: • Widen SR 410 to three lanes between Park Avenue and SR 165. • Widen SR 410 to four lanes, adding an additional lane in each direction, between Park Avenue

and Mundy Loss Road. • Both options assume roundabouts at Park Avenue, Main Street, and SR 165.

While both options would not require additional capacity over White River until after 2040, the option to add four lanes through Buckley would significantly extend the operational capacity of the corridor and extend the operational life of the White River Bridge.

However, widening the highway is a significant capital investment and can require additional right-of-way. Some homes, farmland, businesses, utilities, and highway access would be impacted. Depending on funding availability, a phased approach could be used to help address the most congested sections of


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the corridor without the need to widen the entire corridor, minimizing potential impacts and reducing potential costs.

Other long-term strategies include adding roundabouts at the intersections of Cole Street and 254th Avenue SE.

Strategies Beyond 20 years Several strategies evaluated as part of the detailed screening showed benefits to the operations of the corridor but are not anticipated to be needed until beyond the planning horizon of this study. These options include:

• Widen SR 410 between 244th Avenue SE and Park Avenue to four lanes. This option would require four lanes over the White River. Options for replacing the White River Bridge and the Flume Bridge are discussed in the following section.

• Provide five lanes on SR 410 (two eastbound, two westbound, left turn lanes where needed) from 234th Avenue E near Bonney Lake to Roosevelt Street in Enumclaw. This option is consistent with recommendations made in the 1997 SR 410 Route Development Plan – State Route 410, SR 167 to King County Line.

White River Bridge As part of this study, the study team evaluated the safety performance and mobility benefits of replacing or expanding the White River Bridge between Enumclaw and Buckley to four lanes and removing the trestle. Preliminary analysis indicated that widening the existing structure is not feasible. To expand capacity over the White River to four lanes, an additional bridge will be needed.

Options for bridge replacement included both two- and four-lane options. A two-lane bridge option would include two westbound lanes, and assumes the existing bridge would remain and be converted to two eastbound lanes. A four-lane bridge option assumes all traffic on the new bridge.

If the proposed mid- and long-term strategies discussed above are implemented by 2040, adding additional capacity over the White River would not be needed until after the planning horizon of this study (year 2040).

It is assumed a new bridge would be constructed on the downstream side of the existing bridge. A Type, Size, and Location (TSL) study is the likely next step to further evaluate bridge replacement options in more detail.

Regardless of which bridge replacement option is advanced in the future, it is recommended that SR 410 be widened to four lanes, with appropriate medians per relevant roadways classification, between Park Avenue and 244th Avenue SE when an additional bridge is constructed over the White River.

Next Steps The recommended strategies identified in this study will assist WSDOT and other agencies with addressing congestion issues along the SR 410 corridor between 234th Avenue E and Garrett Street. These strategies will be prioritized on a statewide basis for future implementation, but due to limited state funding, will need to compete for funding with other proposed improvements throughout the state absent other funding sources. Upon completion of this report, funding to complete the recommended strategies, whether from the state, grants, developer contributions, or other sources, need to be pursued.


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A Type, Size, and Location (TSL) study to further evaluate bridge replacement options in more detail is recommended.

Highway corridor improvements could be pursued by the City of Buckley and the City of Enumclaw, but design efforts and improvement funding would need to be approved locally and contained in the Statewide Transportation Improvement Program.

WSDOT will work with stakeholders and partners to implement low-cost strategies such as TDM, which includes vanpools and carpools in the near-term. WSDOT will continue to work with interested partners on the strategies considered pertinent and viable over the near-, mid-, and long-term operation of the highway corridor. Although the strategies have been recommended for 5, 10 or 20 years, if funding becomes available the work could be programmed sooner.


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1. INTRODUCTION AND BACKGROUND

1.1 Introduction The State Route (SR) 410 – 234th Avenue E to Garrett Street Corridor Congestion Study (SR 410 Study) MP 16.82 to MP 24.50 is a planning level effort that assesses current and future conditions along the corridor. The study uses a practical solutions approach to identify potential strategies to relieve congestion and improve travel time, predictability, and operations.

Existing mobility concerns consist of traffic congestion on the highway, as well as across the existing White River Bridge. Congestion occurs during both morning and evening commutes and on weekends due to commuter and recreational traffic.

In 2017, the Washington State Legislature provided funding for this study to identify potential improvement strategies to address the traffic congestion. The proviso stated, “Among the options studied as part of the SR 410 Corridor Study, the department shall examine the mobility and safety benefits of replacing or expanding the White River bridge between Enumclaw and Buckley to four lanes and removing the trestle.” No design or construction funds were identified at the time of the study.

1.2 Purpose and Need This study identifies ranked strategies to address improvements (including the White River Bridge),which would improve travel time, predictability, and operations of SR 410 between 234th Avenue E in Bonney Lake, through Buckley to Garrett Street in Enumclaw. The study uses the Washington State Department of Transportation’s (WSDOT’s) Practical Solutions approach. This study is consistent with WSDOT’s strategic plan, and the Washington State Legislature’s transportation system policy goals established in RCW 47.04.280 to integrate transportation performance at the local, regional and state government levels. The transportation system policy goals are economic vitality, preservation, safety, mobility, environment, and stewardship.

The study began in January of 2018 with the first of five stakeholder meetings in May 2018. With the assistance of the stakeholder group, the study effort was guided by critical statements approved at the initial stakeholder meeting. These statements include the following:

• Problem Statement – Traffic volume on SR 410 between 234th Avenue E in Bonney Lake, through Buckley to Garrett Street in Enumclaw exceeds roadway capacity, leading to traffic congestion.

• Purpose of the Study – Identify ranked strategies to address identified performance gaps (including the White River Bridge) that improve travel time, predictability, and operations of SR 410 between 234th Avenue E in Bonney Lake, through Buckley to Garrett Street in Enumclaw.

• Vision Statement – Provide a safe and efficient multimodal transportation system that improves mobility by relieving congestion consistent with anticipated growth.


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1.3 Previous Studies Previous studies of the SR 410 corridor have been completed by WSDOT and local jurisdictions over the past twenty years. Several of the projects recommended in these studies have been completed. Table 1-1 lists the studies completed along the corridor, their key recommendations and takeaways and if the projects have been completed.

Table 1-1. Previous Studies Identified along SR 410 Corridor

Study Title (year) Key Recommendations Project that have been Implemented

WSDOT Olympic Region Route Development Plan

(1997)

• Widen highway with one lane in each direction from Mundy Loss to King County Line.

• Highway has been widened as far east as 234th Avenue E.

• Install traffic signals at key intersections along the highway.

• Traffic signals have been installed at SR 410 intersections with 234th Avenue E, Park Avenue, SR 165, and Mundy Loss Road.

• Provide paved shoulders and/or sidewalks to improve non-motorized connectivity.

• Paved shoulders provided as far east as Mundy Loss Road.

City of Buckley SR 410 Corridor Study, Revised

Class 3 Multilane Facility (2001)

• Conceptual design for SR 410 through Buckley, showing revised access and widened highway

• Improvement(s) have yet to be completed

City of Enumclaw SR 410 Corridor Study (2010)

• Signalize 244th Avenue SE. • Reconfigure or restrict movements at

Semanski Street S/252nd Avenue SE. • SR 410 at Garrett Street has been widened

to 5 lanes. • Other improvement(s) have yet to be

completed.

• Widen Warner Ave at SR 410.

• Install a roundabout at SR 410/Cole Street.

• Intersection improvements at Roosevelt Avenue.

• Widen SR 410 at Garrett Street to 5 lanes.

SR 410/SR 165/Ryan Road/112th Street E Realignment Phase 2

• Recommended a signal the intersection of SR 410/SR 165. • Project completed in 2012.

City of Enumclaw Comprehensive Plan (2015)

• Various intersection, safety, and non-motorized improvements to SR 410 between 244th Avenue SE to Warner Avenue. • Improvement(s) have yet to be completed.

• Reconfiguration of Semanski/252nd Street intersection with SR 410.

City of Buckley Comprehensive Plan

Transportation Element Update (2016)

• Widen SR 410 through Buckley to 5 lanes. • SR 410/SR 165 has been re-aligned and

signalized (2012). • Re-align and signalize SR 410 intersection with SR 165.


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2. STUDY PROCESS Key study constraints and assumptions included:

• This study focuses on the SR 410 corridor between 234th Avenue SE and Garrett Street. • The study uses the WSDOT Practical Solutions Approach to identify near-, mid-, and long-range

needs in the corridors and possible strategies to address those needs. • The strategies will be ranked. • The Puget Sound Regional Council (PSRC) travel demand model will be used for the

modeling effort.

Practical Solutions is a performance-based approach to transportation decision-making. This approach encourages system performance management through cost-effective operational improvements first, by considering demand management opportunities and second, after exhausting other options, by considering capacity expansion. This data-driven approach uses the latest tools and performance measures to seek lower cost efficiencies in operating highways, ferries, transit, and rail, and reduce travel demand to save money and reduce the need for building costly new infrastructure. The major work elements completed as part of the study are shown below in in Figure 2-1. The study management and communication plans are included in Appendix A.

Figure 2-1. Practical Solutions Study Process


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WSDOT’s Practical Solutions framework is shown in Figure 2-2 and shows where the SR 410 study lies in the overall process. The study will identify agreed-upon needs-ranked strategies. The study will assist WSDOT and others to make decisions on improving highway efficiency and relieving congestion along the SR 410 corridor.

Figure 2-2. WSDOT Practical Solutions Framework

The major work elements completed as part of this study include: • Section 3 - Guidance from the stakeholder group and input through community engagement

including an online survey and public meetings. • Section 4 - Documenting existing characteristics of the SR 410 corridor in the study area. • Section 5 - Analyzing existing and future traffic volumes and traffic conditions. • Section 6 - Evaluating recent crash history. • Section 7 - Documenting existing environmental characteristics of the SR 410 corridor in the

study area. • Section 8 – Documenting how strategies to address congestion and delay along the SR 410

corridor were developed and evaluated. • Section 9 – Documenting list of recommended improvement strategies presented to the

stakeholders for concurrence and shared with the public in an open house. • Section 10 – Recommending next steps.


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3. STAKEHOLDER AND COMMUNITY ENGAGEMENT A public and agency involvement process was conducted that informed, identified, and responded to jurisdiction and community concerns along the corridor. The outreach process involved stakeholder meetings and outreach, an online survey, and public informational open houses. This involvement process was consistent with WSDOT’s Community Engagement Plan.

3.1 Stakeholder Meetings A stakeholder group was engaged to provide feedback throughout the study. Stakeholders helped develop the problem and vision statements and provided feedback on technical data, potential improvement strategies, study recommendations, and study documents. Key representatives for each stakeholder group and summaries of stakeholder meetings is included in Appendix B.

3.2 Other Stakeholder Outreach Secondary stakeholder outreach efforts were conducted with WSDOT maintenance, school district transportation staff, law enforcement, and local fire and rescue staff. The study team asked for input and feedback on needs within the study area and potential improvement strategies.

3.3 Online Survey An online survey was conducted in July 2018 to solicit public feedback and help identify key transportation issues along the SR 410 corridor in the study area. A 22-question survey was developed and available online between July 9 and July 22, 2018. During that time, WSDOT received over 2,800 responses and completed surveys. The survey consisted of questions asking for feedback on:

• How people travel/use the area • What is important to people • Which ideas would help relieve congestion and improve travel

times

The survey included several open-ended questions asking people if they had other ideas on how to improve traffic flow in the area.

The online survey was promoted using a variety of methods: • Stakeholder email: WSDOT emailed an announcement of the online survey to the study

stakeholder group and requested that stakeholders forward the information to the organization/groups/constituents they represent.

• Website: The online survey link was posted on the Study website. • Press release: WSDOT distributed a press release announcing the online survey to

approximately 200 local individuals and organizations, including media, public agencies, and emergency services.

• Social media: The online open house was promoted via Twitter and Facebook.

Stakeholders

WSDOT King County

Pierce County Puget Sound Regional

Council (PSRC) City of Bonney Lake

City of Buckley City of Enumclaw

City of Sumner Muckleshoot Tribe

Nisqually Tribe Puyallup Tribe Squaxin Tribe

Snoqualmie Tribe Yakama Tribe Sound Transit Pierce Transit

King County Metro


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Appendix C includes a detailed summary of the online survey questions and responses. The following is a summary of the major takeaways and themes from the online survey:

• More than 60 percent of respondents travel along the route at least once a day. • Almost all respondents travel by car, truck, or motorcycle. • The top five reasons for use of the route were travel for everyday life, visiting friends and family,

recreational activities, commuting to and from work, and medical appointments. • About 90 percent of respondents purposely time their trips to avoid congestion at least some of

the time. • At least 60 percent of respondents take an alternate route on a daily or weekly basis. • The top three priorities for improving the route were to relieve congestion (ranked as the #1

priority by 76 percent of respondents), to increase predictability of travel times (both day-to-day and at different times of the day), and to reduce crashes.

• Participants ranked the White River Bridge to Garrett Street section of the route as most in need of improvement.

• Participants ranked widening the highway to provide additional lanes, changes to the White River Bridge, and changes to signal timings as the top ideas to help relieve congestion and improve travel times.

3.4 Open Houses WSDOT held two open houses in October 2018 to show results of the online survey, study process, and strategy evaluation, and to present the ranking results. An open house was held on October 10, 2018 in Buckley and on October 11, 2018 in Enumclaw. Approximately 22 people attended the open house in Buckley and approximately 28 people attended the open house in Enumclaw.

Informational boards were set up around the room showing the study purpose, study process, results of the online survey, traffic analysis results, evaluation process, and recommended strategies. All boards from the open house are included in Appendix C.

The study team and WSDOT staff were available to answer questions. There were a small number of written comments received from the open houses. One comment received at the open house suggested another new strategy to be evaluated: widen SR 410 to four lanes between Park Avenue and Mundy Loss Road with roundabouts at Park Avenue, Mundy Loss Road, and SR 165. This strategy was taken through the evaluation process following the open houses; results are included in the recommendations section.

The following is a summary of the major takeaways and themes from the open houses:

• Schedule/Funding:

Many people said they wished the strategies could be implemented sooner.

Many people also asked why the recommended strategies will take so long to implement.

Some people said recommended costs are too high.

Some people expressed concern that there is no construction funding allocated to the study effort.


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• Roundabouts:

Received mixed comments about roundabouts at the Buckley Open House.

At the Enumclaw Open House, many people at the meeting shared support for the recommended roundabouts, particularly those at Park Avenue and Main Street in Buckley.

The study staff heard specific support for roundabout at 244th Avenue SE.

• Park Avenue and Main Street:

Some people said that the intersections at Park Avenue and Main Street are bottlenecks.

Some people said there are so many school buses on Park Avenue and Main Street in the afternoon that traffic gets backed up and makes it difficult to get onto SR 410.

• 244th Avenue SE and 241st Avenue SE

More than one person said that there are major backups at 244th Avenue SE and 241st Avenue SE due to non-local traffic.

Some people suggested that 241st Avenue SE be signed for “local access only.”

• White River Bridge

Someone suggested building a bridge across the White River east of Buckley to route traffic around Buckley.

A new bridge should include a bicycle lane.

Material from the open house was also posted on the WSDOT SR 410 – 234th Avenue E to Garrett Street Congestion study webpage: https://www.wsdot.wa.gov/planning/studies/sr-410/234th-avenue-garrett-street-corridor-study

https://www.wsdot.wa.gov/planning/studies/sr-410/234th-avenue-garrett-street-corridor-study

https://www.wsdot.wa.gov/planning/studies/sr-410/234th-avenue-garrett-street-corridor-study


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4. ROUTE CHARACTERISTICS

4.1 Study Area The study area for this study extends for approximately 10.5 miles between 234th Avenue E (milepost [MP 16.90) and Garrett Street (MP 24.50), as shown in Figure 4-1. The SR 410 corridor in the study area is in both King and Pierce counties, crossing the county line at the White River.

4.2 Land Use Existing land use within the study area varies. Between 234th Avenue E to just east of Mundy Loss Road (MP 19.63) the land use is designated as Agricultural Resource Land (ARL). From Mundy Loss Road to the White River Bridge the land use is a mix of commercial and mixed-use with segments of the Foothills Trail (a National Recreation Trail) adjacent to SR 410. From the White River Bridge to Roosevelt Avenue (MP 24.29) the land use is a mix of public/Institutional and Unincorporated King County ARL including segments of the Foothills Trail adjacent to SR 410. West of Roosevelt Avenue to Garrett Street the land use is mostly commercial.

4.3 Existing Roadway Network SR 410 connects Pierce, King, and Yakima counties. This study evaluated the corridor between 234th Avenue E (MP 16.81) and Garrett Street (MP 24.50), connecting the cities of Bonney Lake, Buckley, and Enumclaw. Within the study area there are three general segments in the SR 410 study:

• Segment 1: 234th Avenue to Mundy Loss Road (MP 16.81 to MP 19.63)—in this section SR 410 is primarily a two-lane highway, with a limited number of widely spaced intersections.

• Segment 2: Mundy Loss Road to the White River Bridge (MP 19.63 to MP 21.99)—in this section, SR 410 is a three-lane highway with closely spaced intersections through downtown Buckley.

• Segment 3: White River Bridge to Garrett Street (MP 21.99 to MP 24.50)—in this section SR 410 is primarily a two-lane highway, with a limited number of widely spaced intersections.

4.3.1 State and National Highway Classifications WSDOT classifies SR 410 within the study area as an Urban Non-Interstate (GR-02) highway. The state has not identified SR 410 in the study area as a Highway of Statewide Significance (HSS); however, PSRC has identified SR 410 as a Tier 2 Regionally Significant Highway (RSSH). SR 410 is not included in the National Highway System. The Pierce County Foothills Trail was designated in 2012 as a National Recreation Trail.

Currently, the portion of SR 410 within the study area is not designated by WSDOT as one of Washington's Scenic and Recreational Highways. The Chinook Pass Scenic Byway, recognized as the premier driving tour in Washington State, begins just west of the study area at Roosevelt Avenue and continues to the Naches Valley along SR 410. The Chinook Scenic Byway Corridor Management Plan was completed in 2016.


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Figure 4-1. Study Area


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4.3.2 Freight and Goods Transportation System Classification WSDOT classifies all highways, county roads, and city streets by reported annual gross truck tonnage, ranging from T-1, with the highest tonnage, to T-5, with the least tonnage. SR 410 (MP 13.37 to MP 22.46) is identified as a “T2” route in the Statewide Freight and Goods Transportation System (FGTS), the second highest category. The route carries 4.46 million in annual tons of freight, and annual average daily truck volume is 1,200 (5.5 percent of total).

WSDOT prepares a biennial FGTS report, which serves as an inventory of the state freight system to meet state reporting requirements. It is used as a basis for eligibility by the Washington State Freight Mobility Strategic Investment Board (FMSIB) and other grant sources to fulfill federal reporting requirements, and to support planning for freight mobility improvements. Corridor classification and maps can be found at the WSDOT FGTS website. While the FGTS is in essence a current inventory, the system is dynamic and periodic reviews and revisions will be needed. The forces of economic growth and change can bring about a need to add or delete routes or to change route tonnage classifications.

4.3.3 Access Management Plan Classifications Access management techniques are used to create an environment where less traffic flow interruptions occur to vehicles on the main line by regulating the location, frequency and type of access that is granted along a corridor. Access is controlled in one of two ways: by limiting it through the purchase of access rights or by managing it. A freeway is an example of a fully limited-access highway. Some highways are partially limited with access rights having been purchased for parts of the roadway, restricting access but not limiting it to ramps as with freeways. Managing access is a way of limiting access in a more flexible way that is also less costly to taxpayers.

WSDOT has designated SR 410 in the study area as a Managed Access Highway with rules governing the frequency and types of access that can be granted. Specific rules governing Managed Access Highways were created in 1991 and roadway accesses granted before 1991 were grandfathered in so that the new rules only apply when redevelopment occurs. Managed access highways in unincorporated areas require a state-issued access permit. However, pursuant to Washington State Law (Washington Administrative Code [WAC] 468-50-010) cities along the highway have permitting authority for managed access routes within their boundaries.

There are five Managed Access classifications in WSDOT’s system with Class 1 allowing for the least amount of access and greatest mobility and Class 5 allowing for the most access with potentially less mobility. Factors that were considered in developing the classifications are traffic volume, speed limit, adjacent land use, functional classification, existing access density factors, and safety factors. Table 4-1 lists the access classifications for sections of SR 410 as defined by WSDOT.1 Access management regulates proposed street connections and property access driveways to state routes.

The Bonney Lake (east city limit) to Buckley section (MP 15.36 to 19.72) and the PSPL Company Canal (Flume Bridge) to King/Pierce County Line section (MP 21.84 to 21.99) of SR 410 is noted as a Class M2 highway section. Typical Criteria for a Class M2 section include:

• Mobility favored over access. • Minimum access spacing at 680 feet.

1 Data used from WSDOT’s “Access Control Tracking System Limited Access and Managed Access Master Plan” (February 2018).


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• Access limitations;

1 access only to contiguous parcels under same ownership unless frontage exceeds 1,320 feet.

Private access not allowed unless no other reasonable access exists.

Table 4-1. Managed Access Section on SR 4101

Access Management Section Beginning Milepost

Ending Milepost

WSDOT Access Classification

Bonney Lake to Buckley 15.36 19.72 Class M2 Buckley – WCL1 to Vic. Hinkleman Road 19.72 20.41 Class M3 Buckley - Vic. Hinkleman Road to Vic. PSPL Co. Canal 20.41 21.84 Class M3 Buckley - Vic. PSPL Co. Canal to King County Line 21.84 21.99 Class M2 Buckley To Enumclaw NCL 21.99 25.71 Class M4

1 WCL=West City Limit, NCL=North City Limit

The segment of SR 410 extending from Buckley to the White River Flume Bridge is noted as three class M3 highway sections. Typical criteria for a Class M3 section include:

• Balance between mobility and access with less than maximum buildout. • Minimum access spacing at 330 feet. • Access limitations;

1 access only to contiguous parcels under same ownership.

Joint access for subdivisions preferred but private direct access is allowed with reason.

The final segment in the SR 410 study area extending from the King/Pierce County Line to Enumclaw NCL (MP 21.99-25.71) is noted as a Class M4 highway section. Typical criteria for a Class M4 section include:

• Access favored over mobility. • Minimum access spacing at 250 feet. • Access limitations;

1 access only to contiguous parcels under same ownership.

Variance permits may be allowed.

4.3.4 Intelligent Transportation System Highway Corridor SR 410 in the study area is not currently a WSDOT ITS priority corridor (https://www.wsdot.wa.gov/partners/prtpo/docs/materials/ITSPlan32409.pdf) and has no direct funding source. ITS technologies lay the groundwork for Transportation Systems Management and Operations (TSMO). TSMO encompasses the day-to-day actions and WSDOT responses to the region's transportation system. TSMO strategies provide money-saving, multimodal solutions that relieve congestion, optimize infrastructure investments, promote travel options and reduce greenhouse gas emissions.

https://www.wsdot.wa.gov/partners/prtpo/docs/materials/ITSPlan32409.pdf


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4.3.5 Existing Roadway Conditions SR 410 within the study area is primarily a two-lane facility with speeds ranging from 35 miles per hour (mph) in the core of the city areas to 55 mph on more rural stretches on the highway.

Speed limits reflecting the speed most motorists naturally drive are selected in part by determining the “85th percentile speed” (the speed that 85 out of 100 vehicles travel at or below). When setting speed limits, engineers also consider other factors such as roadway characteristics, collision rates, and lighting. WSDOT performed a series of spot speed studies in the study area along SR 410 in 2017 between MP 21.99 and MP 24.5. The posted speed along this portion of the corridor is 40 mph. The spot speed studies showed 85th percentiles speeds ranging between 45 and 48 mph, indicating the posted speed is appropriate.

WSDOT conducts regular maintenance studies along the state’s highway system. Most recent reports within the SR 410 study area indicated illumination and signage are within WSDOT standards. The reports noted locations where missing or damaged signs were updated, restored to their original condition, and/or replaced due to vandalism.

4.3.6 Utilities The highway in the study area has 12 different utilities within the State right-of-way. Types range from communications, water, gas and various levels of electrical networks. Utilities are located on the corridor by easement, franchise or permit.

• Comcast communications (two communication facilities) • AT&T communications • City of Tacoma water line • Marion Water Company water line • Puget Sound Energy (two power cables) • Qwest Communications • US West Communications • Valley Water District water line • Viacom communications • Vern V. Smith waterline

4.3.7 Non-motorized Facilities Non-motorized facilities are not currently provided along most of the study corridor. There are 5 to 7 feet of shoulder space on both sides of the roadway along the entire corridor except along the Flume Canal Bridge and White River Bridge. Sidewalk facilities are located at the corners of some signalized intersections including 234th Avenue E, SR 165, Main Street, Park Avenue, Warner Avenue, and Garrett Street, and along sections of newly built industrial sites just east of Mundy Loss Road. There are no designated bike lanes along the corridor.

The Pierce County section of the Foothills Trail, which runs parallel to SR 410, is a designated separated shared-use facility that originates in Puyallup, enters the corridor at SR 165 and continues to the White River Bridge. The trail begins in the City of Puyallup and continues through the Puyallup Valley to the City of Orting before beginning a small climb to the Town of South Prairie and the City of Buckley. The


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existing trail is a 12-foot-wide non-motorized asphalt trail suitable for bicycles, walking, in-line skates, and wheelchairs.

Today, the White River separates the completed portions of the Foothills Trail in Enumclaw and Buckley. Local cities, along with King and Pierce County Parks, are working together under an inter-local agreement to complete missing portions of the trail. Once complete, the Foothills Trail will be a 22-mile long, paved, non-motorized path connecting the approximately 238,000 residents of Enumclaw, Buckley, South Prairie, Orting and Puyallup. In 2019, King County Parks will build another mile of the trail between the existing trail in Enumclaw and the historic Highway 410 Bridge over Boise Creek. In 2021, King County will close the gap between Enumclaw and Buckley by building a trail bridge over the White River.

The City of Buckley’s Comprehensive Plan includes a goal to create a continuous network of non-motorized facilities. Specific policies relevant to this study include working with WSDOT to make SR 410 safer for non-motorized users and providing non-motorized crossings across SR 410 at either signalized intersections or grade-separated crossings.

The City of Enumclaw’s Comprehensive Plan includes a goal to provide a safe and well-connected system of pedestrian and bicycle facilities. This plan includes provisions for complete streets as well as Active Transportation projects to add pedestrian and bicycle facilities to roadways or construct off-street multi-use pathways to complete gaps in the existing non-motorized network. Active transportation is any self-propelled, human-powered mode of transportation, such as walking or bicycling. Improving bicycle and pedestrian facilities can encourage active transportation such as children biking to school or employees walking to work. These projects provide alternative methods of travel and recreational opportunities. No projects are listed for SR 410.

4.3.8 Public Transportation Pierce Transit does not have any existing service in this corridor and the study area is outside of their existing service area. The Cities of Bonney Lake and Buckley elected to remove themselves from the Pierce County Public Transportation Benefit Area (PTBA) in October 2012. However, Pierce Transit’s Long Range Plan (Destination 2040) does mention potential service in the most aggressive unfunded scenario (Scenario 4B – Aspirational Growth) to areas such as Bonney Lake. Additionally, Destination 2040 also included assumptions that these areas would return to PTBA through a Public Transportation Improvement Conference (PTIC) process/annexation or service being contracted through a partnership.

Public transportation is not provided in the form of bus service in the City of Buckley. Public transportation opportunities still exist in the form of vanpool and other car-sharing plans; however, there are no formal park-and-ride facilities within the City. Two Pierce Transit-sponsored vanpools currently operate from the City of Buckley to Boeing in Auburn and the City of Tacoma. The City Comprehensive Plan does, however, call for the construction of park-and-rides to serve any future transit service within the City’s downtown and the SR 410 corridor.

King County Metro provides transit service between Enumclaw, Black Diamond, Maple Valley, Renton, and Auburn. Transit routes primarily serve Roosevelt Avenue and Semanski Street within the study area with a dial-a-ride transit (DART) service available throughout adjacent areas of Enumclaw. DART Route 907 provides weekday midday service to and from Enumclaw, Black Diamond, Maple Valley and Renton.

Metro Route 186 and DART Route 915 provide weekday and Saturday service to the Auburn Commuter Rail Station, southeast Auburn, the Muckleshoot Reservation, and Enumclaw. Transit service to downtown Seattle is provided by Sounder Commuter Rail, which can be accessed by a timed transfer at the Auburn Station. The Farmers Park Park-and-Ride lot (25 parking spaces) is located at the SR 164 and


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228th Avenue SE intersection northwest of Enumclaw and is served by Metro Route 186 and DART Route 915 with direct service to Auburn Station. The Sacred Heart Church Park-and-Ride lot (40 spaces) is located southwest of the Griffin Avenue/Farrelly Street intersection and is served by Metro Route 186 and DART Route 915. There are two current Pierce Transit-sponsored vanpools operating from the City of Enumclaw to Joint Base Lewis-McChord and the City of Tacoma. King County Metro and Sound Transit identified two projects in the city of Enumclaw that include citywide improved transit service and improvements to park-and-ride access to transit service.

Additionally, the Muckleshoot Tribe operates a tribal transit program that provides services for the rural residents of South King County on-or-near the Muckleshoot Reservation. The purpose of the program is to provide “free transit services in order to help the disadvantaged populations climb the ladders of opportunity.” The program operates an online database that shows routes in real time and provides riders the ability to route plan. The program is always looking for ways to expand services to more residents of South King County. The program is 100 percent grant funded on behalf of the Federal Transit Administration (FTA) and Bureau of Indian Affairs (BIA.)

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5. EXISTING AND FORECASTED TRAFFIC CONDITIONS

5.1 Data Collection Various types of data were collected to understand the existing and future operations of the SR 410 corridor. Data included:

• AM and PM peak hour traffic volumes • Average daily traffic (ADT) • Travel speed data • Crash data • Forecasted traffic volumes • Relevant studies and Comprehensive Plans • Geographic information system (GIS) mapping • Public comments • Signal timing data • In-person observations

5.1.1 Existing Traffic Volumes Existing traffic data was collected Saturday, May 19, 2018 and Tuesday, May 22, 2018. Saturday counts were collected from 11:45 a.m. to 1:45 p.m. and Tuesday counts were collected during the AM peak period (7:00-9:00) and PM peak period (3:30-5:30). Turning movement counts are included in Appendix D. Count data was collected at the following intersections:

• 234th Avenue E • 254th Avenue E • Mundy Loss Road • Hinkleman Road • SR 165

• Jefferson Avenue/ 3rd Street

• Main Street • Park Avenue • 244th Avenue SE

• Semanski Street S • Warner Avenue • Cole Street • Roosevelt Avenue • Garrett Street

Figure 5-1 through Figure 5-3 summarize existing year AM, PM, and weekend peak hour traffic volumes along SR 410. Existing weekend peak hour counts were compared to the AM and PM peak hour counts and it was determined that the travel characteristics are very similar to the PM peak hour, both in total volume and distribution. Therefore, the PM peak hour model growth was used for the weekend peak hour forecast.

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Figure 5-1. Existing 2018 AM Peak Hour Volumes

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Figure 5-2. Existing 2018 PM Peak Hour Volumes

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Figure 5-3. Existing 2018 Weekend Peak Hour Volumes

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5.1.2 Forecasted Traffic Volumes The Puget Sound Regional Council (PSRC) trip-based travel demand model was used to prepare travel forecasts. The model contains a 2010 base year and 2035 forecast year. PSRC is currently updating their trip-based travel demand model, but that update was not available in time for this study. The methodology and growth rate calculations are provided in Appendix E.

For this study, three volume forecasts were prepared: a near-term year (2025), a mid-term year (2030), and a long-term year (2040). Within the study area, four distinct regions were identified to have different growth rate characteristics:

• City of Buckley • South of SR 410, west of Buckley • South/East of SR 410 in the Enumclaw vicinity • North/West of SR 410 in the Enumclaw vicinity

The annual approach and departure growth rates were calculated for each region. The annual link growth was calculated at each study intersection by applying the annual link growth percentage to the existing 2018 link volumes. The majority of the traffic growth was observed in the City of Enumclaw near SR 410 and within the City of Buckley. The screenlines in Figure 5-4 show the percentage growth in vehicles west of Buckley and at the White River Bridge in the AM and PM peak hours for all forecasted years.

For the weekend turning movement counts, a seasonal adjustment factor was evaluated to account for the high volumes of seasonal recreational weekend travelers that use the SR 410 corridor. Working with WSDOT staff it was determined that this portion of SR 410 is classified as Urban Non-Interstate (GR-02). To seasonally adjust the weekend counts collected in May, to the highest weekend month a 2 percent adjustment factor was calculated. This factor was low enough that the existing counts were used without an adjustment. Figure 5-5 through Figure 5-10 summarize 2025 near-term, 2030 mid-term, and 2040 long-term peak hour traffic volumes.

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•

Figure 5-4. Forecasted Future Traffic Volumes at Screenlines

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Figure 5-5. Near-Term 2025 AM Peak Hour Volumes

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Figure 5-6. Near-Term 2025 PM Peak Hour Volumes

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Figure 5-7. Mid-Term 2030 AM Peak Hour Volumes

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Figure 5-8. Mid-Term 2030 PM Peak Hour Volumes

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Figure 5-9. Long-Term 2040 AM Peak Hour Volumes

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Figure 5-10. Long-Term 2040 PM Peak Hour Volumes

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5.1.3 Existing and Baseline Traffic Operations The AM, PM, and weekend peak hours were analyzed for 2018 existing year, 2025 near-term year, 2030 mid-term year, and 2040 long-term year. Synchro (version 10) was used to develop the intersection level of service (LOS). Synchro is a macroscopic analysis and optimization software application that supports the Transportation Research Board Highway Capacity Manual’s methodology (2000 and 2010 methods) for signalized and unsignalized intersections and creates optimized signal timing plans for intersections and corridors. For detailed methods and assumptions used, see Appendix F.

During the AM peak hour all intersections operate at LOS D or better in existing year 2018. By year 2040, four intersections operate at LOS F:

• Three stop-controlled intersections – 254th Avenue E, Hinkleman Road, and Jefferson Avenue. • One signalized intersection – Mundy Loss Road.

At the stop-controlled intersections, the LOS represents operations on the stopped approach to the intersection. LOS F means that vehicles on the side street experience delay waiting to turn onto SR 410. At signalized intersections, the LOS represents the average operations for vehicles on all approaches to the intersection.

During the PM peak hour, all intersections operate at LOS D or better in existing year 2018 with three exceptions:

• 254th Avenue E and Hinkleman Road operate at LOS E. • Jefferson Avenue operates at LOS F.

By year 2040, six intersections operate at LOS F: • Three stop-controlled intersections – 254th Avenue E, Hinkleman Road, and Jefferson Avenue. • Three signalized intersections – Mundy Loss Road, SR 165, and Park Avenue.

During the weekend peak, intersections operate similar to the PM peak hour, with two intersections (Jefferson Avenue and 244th Avenue SE) operating at LOS F in existing year, and four intersections (254th Avenue E, Hinkleman Road, Jefferson Avenue, and 244th Avenue SE) operating at LOS F in the year 2040.

Figure 5-11 through Figure 5-13 illustrate the LOS at study intersections on the corridor for all the year analyses, and LOS results are also included in Appendix G.

Stakeholders have indicated that SR 410 westbound experiences substantial backups during the evening commute approaching Buckley. Congestion originates at the Park Avenue and Main Street intersections in Buckley and extends past 244th Avenue SE. The long queue of vehicles traveling at a stop-and-go pace cause secondary issues at the 241st Avenue SE and 244th Avenue SE intersections. Vehicles from the stopped approaches at these two intersections routinely cut into the slow-moving traffic on SR 410, which further exacerbates the congestion on SR 410.

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Figure 5-11. 2018, 2025, 2030, and 2040 AM Peak Hour Level of Service

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Figure 5-12. 2018, 2025, 2030, and 2040 PM Peak Hour Level of Service

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Figure 5-13. 2018, 2025, 2030, and 2040 Weekend Peak Hour Level of Service

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The intersection LOS calculated in Synchro does not account for the effects of congestion spillback on traffic flow, so the microsimulation model SimTraffic was used, described in detail in Appendix F. The SimTraffic model is capable of capturing the congestion spillback effects observed on the corridor. Instead of evaluating each intersection individually, the overall corridor travel time is modeled, providing a gauge of overall corridor operations. SimTraffic was used to estimate travel times during the AM and PM peak hours for the analysis years. The weekend peak hour was not modeled, and it is assumed the travel time would be similar to or slightly better than the PM peak hour travel time.

Free-flow travel time on the corridor (i.e., traveling at posted speed with no delay due to traffic signals or other vehicles) between Garrett Street in Enumclaw and 234th Avenue E in Bonney Lake is approximately 12 minutes. As shown in Table 5-1 below, there is some level of congestion in both directions during the AM and PM peak hours in existing year 2018, with travel times of at least 14 minutes. Travel times are longest in the westbound direction during the PM peak hour at 23 minutes. By the year 2040, travel times in the peak directions (eastbound during the AM peak hour and westbound during the PM peak hour) increase substantially compared to existing year due to increased traffic volume. Eastbound travel times increase from 16 minutes to 23 minutes, and westbound travel times increase from 23 minutes to 56 minutes. There are minor increases in travel time in the off-peak directions (westbound during the AM peak hour and eastbound during the PM peak hour) but the increase is less than in the peak direction because volume growth in the off-peak direction is less.

Table 5-1. SR 410 Travel Times between 234 Avenue E and Garrett Street (minutes)

Peak Hour Direction 2018 Existing 2025 Near-Term 2030 Mid-Term 2040 Long-Term

AM EB 16 17 19 23 WB 14 14 14 15

PM EB 14 15 15 16 WB 23 33 41 56

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6. CRASH ANALYSIS Under 23 United States Code §148 and 23 United States Code §409, safety data, reports, surveys, schedules, list 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.

6.1 Existing Crash History The study team met with WSDOT Headquarters safety staff to determine the appropriate level of safety analysis to be conducted for this study. Because this is not a safety study, it was determined that a “basic analysis level” safety analysis should be conducted for the existing corridor. Basic analysis included assessing and reporting on current safety performance, summarizing recent crash history and reporting on any major contributing factors to fatal and serious injury crashes. A detailed analysis and summary of the crash data is included in Appendix H.

Between January 1, 2013 and December 31, 2017, the SR 410 corridor between 234th Avenue E and Garrett Street had a total of 421 reported crashes. WSDOT has adopted Target Zero with a goal to reduce traffic fatalities and serious injuries on Washington's roadways to zero by the year 2030. The goal is to have zero deaths and serious injuries. The majority of those crashes resulted in no injuries.

Of the 421 reported crashes on SR 410 between 234th Avenue E and Garrett Street, 170 crashes occurred at intersections. Table 6-1 summarizes crashes at intersections by severity. Between 2013 to 2017, there was one serious injury crash and no fatal crashes at the study intersection within the corridor.

Table 6-1. Severity of Crash - Intersections (2013-2017)

Study Intersections Along SR 410 Fatalities

Suspected Serious Injury

Suspected Minor Injury

Possible Injury

No Apparent Injury Total

234th Avenue E 0 0 2 5 10 17 254th Avenue E 0 0 0 5 8 13 Mundy Loss Road 0 0 0 2 17 19 Hinkleman Road 0 0 0 0 5 5 SR 165 0 0 1 1 18 211 Jefferson Avenue – 3rd Street 0 0 1 0 1 2 Main Street 0 0 1 3 19 23 Park Avenue 0 0 0 4 12 16 244th Avenue SE 0 0 0 3 7 10 Semanski Street 0 0 0 3 2 5 Warner Avenue – 456th Street 0 0 1 7 10 18 Cole Street 0 0 0 1 8 9 Roosevelt Avenue 0 1 1 2 3 7 Garrett St 0 0 1 1 3 5 Total 0 1 8 37 123 170

Source: WSDOT Transportation Data and GIS Office 1 Total includes one crash of unknown severity

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Table 6-2 summarizes crashes by severity by corridor segment. There were four serious injury crashes and one fatal crash during that time. All five of these crashes occurred outside of the AM and PM peak period, but there were no other apparent trends related to the five crashes. In addition to the four serious injury crashes and one fatal crash listed in Table 6-2 during the last 5 complete years of data, an additional serious injury crash and fatal crash occurred in early 2018. Table 6-3 summarizes severity of crashes by type.

Table 6-2. Severity of Crash – By Crash Type (2013-2017)

Corridor Segment Fatalities Suspected

Serious Injury Suspected

Minor Injury Possible

Injury No Apparent

Injury Total

234th Avenue E to Mundy Loss Road 0 1 9 23 77 1111

Mundy Loss Road to White River Bridge 1 0 8 39 142 1932

White River Bridge to Garrett Street 0 3 7 38 69 117

Total 1 4 24 100 288 421 Source: WSDOT Transportation Data and GIS Office 1 Total includes one crash of unknown severity 2 Total includes three crashes of unknown severity

Table 6-3. Severity of Crash – By Crash Type (2013-2017)

Crash Type Fatal/Serious

(crashes) Fatal/All Injury

(crashes) Total

(crashes)

Rear End 0 72 242 Opposite Direction – One Turning 0 8 34 Entering at Angle 1 17 51 Ditch 1 7 24 Involving Pedestrian or Bicycle 1 7 8 Other 2 18 62 Total 5 129 421

Source: WSDOT Transportation Data and GIS Office 1 Total includes one crash of unknown severity

The PM peak hour experienced the highest frequency of total crashes, which were predominantly rear-end crashes. Inattention was identified as the most common contributing factor, comprising 35 percent of all crashes. Overall, the portions of the study area with more development contained more of the crashes, but there were no specific locations along the study corridor that contained a greater than expected crash frequency for like highways..

6.2 Roundabouts As part of the recommendations improvement strategies (see Section 9), WSDOT is proposing roundabouts for the mid-term (2030) strategies. Studies by the Federal Highway Administration have found that roundabouts can increase traffic capacity by 30 percent to 50 percent compared to traditional intersections. Additionally, roundabouts have significant safety benefits compared to traditional intersections.


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Studies have shown that roundabouts are result in fewer conflicts and lower speeds resulting in lower severity crashes than traditional stop sign or signal-controlled intersections. Roundabouts reduced injury crashes by 75 percent at intersections where stop signs or signals were previously used for traffic control, according to a study by the Insurance Institute for Highway Safety (IIHS). Studies by the IIHS and Federal Highway Administration have shown that roundabouts typically achieve:

• A 37 percent reduction in overall collisions • A 75 percent reduction in injury collisions • A 90 percent reduction in fatality collisions • A 40 percent reduction in pedestrian collisions

There are several reasons why roundabouts help reduce the likelihood and severity of collisions: • Low travel speeds – Drivers must slow down and yield to traffic before entering a roundabout.

Speeds in the roundabout are typically between 15 and 20 mph. The few collisions that occur in roundabouts are typically minor and cause few injuries because they occur at such low speeds.

• No light to beat – Roundabouts are designed to promote a continuous, circular flow of traffic. Drivers need only yield to traffic before entering a roundabout; if there is no traffic in the roundabout, drivers are not required to stop. Because traffic is constantly flowing through the intersection, drivers do not have the incentive to speed up to try and "beat the light," like they might at a traditional intersection.

• One-way travel – Roads entering a roundabout are gently curved to direct drivers into the intersection and help them travel counterclockwise around the roundabout. The curved roads and one-way travel around the roundabout eliminate the possibility for T-bone and head-on collisions.

Roundabouts are also designed to be safer than traditional intersections for people walking or using mobility equipment. Crosswalks at roundabouts are set back farther from vehicle traffic than a signalized intersection, making it safer for pedestrians. Additionally, roundabouts have fewer conflict points. A single lane roundabout has 50 percent fewer pedestrian-vehicle conflict points than a comparable stop or signal controlled intersection. Conflicts between bicycles and vehicles are reduced as well.

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7. ENVIRONMENTAL CONDITIONS WSDOT defines the environmental context of a transportation corridor during planning following a stepwise assessment of conditions within the corridor. The agency begins by identifying environmental assets that it manages within a corridor and other existing environmental needs. Environmental needs are identified through internal assessments and through outreach with resource agencies and the public. Next, after a planning study identifies site specific, potential mobility solutions within the corridor, those solutions are reviewed to determine how constructing those solutions would impact the natural and built environment. Budgets and schedules to account for environmental review during design and construction are developed and packaged with other design estimates.

WSDOT develops and maintains environmental assets within transportation corridors to connect healthy ecosystems, resilient communities and sustainable transportation choices. Environmental assets include work to Protect Roadway Infrastructure - preserve historic bridges and protect roads from Chronic Environmental Deficiencies and Climate Impact Vulnerabilities. Other Environmental Assets include efforts to protect communities adjacent to our road by: 1) promoting Clean Water - stormwater treatment priorities and structures and well-managed wetland mitigation sites, constructed to offset prior impacts to wetlands in the project area; 2) ensuring Noise Reduction structures are maintained and new structures considered when federal and state noise level standards are exceeded; and, 3) maintaining/constructing Fish and Wildlife structures to remove fish barriers, reduce collisions with wildlife, and to connect priority habitats.

WSDOT provided the consultant team with GIS-mapped environmental resources. As shown in the figures below (Figure 7-1a through Figure 7-3b), the initial study area was defined as a 250-foot buffer area on both sides of the SR 410 corridor between 234th Avenue East in Bonney Lake (Pierce County) and Garrett Street in Enumclaw (King County). For this summary, the study area was used to identify existing environmental conditions and potential impacts.

7.1 Environmental Assets to Protect Roadway Infrastructure The White River Bridge is a potentially eligible historic bridge within the corridor. WSDOT manages this and all historic bridges to prolong the bridges functional lifespan. The best treatment for a historic bridge is to keep the bridge functionally sufficient. Any plans that affect this bridge will require further discussion with WSDOT bridge historians.

Chronic Environmental Deficiencies (CEDs) are locations along the state highway system where recent, frequent, and chronic maintenance to WSDOT infrastructure is causing impacts to fish or fish habitat. There are no CEDs in the corridor study area.

Climate impact vulnerability data provides local experts an evaluation of State Routes’ vulnerability to extreme weather events and other potential climate change impacts and is intended for use in transportation planning. Roadways are ranked on a scale of low to high in terms of vulnerability. Within King County, SR 410 is designated as a corridor with low climate impact vulnerability (Figure 7-1a). Within Pierce County, SR 410 is designated as a corridor with moderate climate impact vulnerability (Figure 7-2b).


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Figure 7-1a. SR 410 Congestion Corridor Study – Environmental Conditions Summary

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Figure 7-1b. SR 410 Congestion Corridor Study – Environmental Conditions Summary


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7.2 Promote Clean Water The county line between King and Pierce Counties lies along the White River. Other shorelines in the corridor study area include Boise Creek, which runs south along the eastern side of SR 410 before joining the White River.

Under Section 303(d) of the Clean Water Act (CWA) administered by the U.S. Environmental Protection Agency (EPA), states are required to develop lists of impaired waters that are too polluted or otherwise degraded to meet state water quality standards. In the state of Washington, Category 5 impaired waters are those that require a water improvement project. Portions of both the White River and Boise Creek have been identified as 303(d) Category 5 impaired waters by the Washington State Department of Ecology (Ecology) in accordance with the CWA. Boise Creek has been flagged due to high temperatures where it parallels SR 410 adjacent to the study area (Figure 7-1a). The White River has been flagged due to low dissolved oxygen levels downriver of the SR 410 crossing, outside of the study area (Figure 7-1b).

There are a number of stormwater BMPs associated with the SR 410 corridor within the study area. Within King County, a small stretch of the highway just north of the White River crossing is classified as a vegetated filter strip (Figure 7-4a). Additionally, there are two stormwater ponds; one just north of the vegetated filter strip and another just south of where Warner Avenue intersects SR 410. In addition, there are 3 areas in King County identified as Stormwater Retrofit Priority Areas. One section is to treat stormwater at the White River Bridge. Two other sections are within Enumclaw. Within Pierce County, there are no stormwater BMPs in the study area.

7.3 Ensure Noise Reduction There are no Noise reduction structures or retrofit priorities within the corridor.

7.4 Fish Passage and Wildlife According to the WSDOT Fish Passage Inventory, there are multiple barriers to fish passage along SR 410 within the corridor study area, including: MP 17.26, MP 21.73, MP 22.67, and MP 22.94. Within King County, the two barriers (MP 22.67 and MP 22.94) are located on either side of Boise Creek Park (Figure 7-2a). Both barriers are on an unnamed stream that is a tributary to Boise Creek. The barriers are 33 percent passable and are deficient due to their depth. Within Pierce County, the two barriers are located east of 234th Avenue East (MP 17.26) and south of the White River crossing at the City of Buckley Cemetery (MP 21.73) (Figure 7-2b). The barrier at MP 17.26 is on Fennel Creek, which is a tributary to the Puyallup River, and is 67 percent passable due to depth deficiencies. The barrier at MP 21.73 is on an unnamed stream that is a tributary to the White River, and is 33 percent passable due to slope deficiencies.

Throughout the corridor study area, SR 410 is ranked as a low priority for habitat connectivity.


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8. STRATEGY DEVELOPMENT AND EVALUATION PROCESSUsing information from the analysis of the existing and future-year No-Build conditions, and local knowledge of traffic operations in the area, the stakeholder team developed strategies to address congestion and delay along the SR 410 corridor. The strategy development included a Practical Solutions approach to develop low-cost strategies in addition to higher-cost capital projects.

8.1 Strategy Development and Initial Screening Process A multi-step screening process was used to identify, screen, evaluate, and rank potential strategies, as shown below in Figure 8-1.

Figure 8-1. Screening and Evaluation Process

The first step in the screening process was to generate ideas with potential to address the needs of the corridor. Ideas were generated based on input from previous studies, stakeholders, the consultant team, the public, and updated analysis.

Next, the study team evaluated the list of strategies through a high-level screening process to identify which strategies meet WSDOT goals and policies. Initial screening results were reviewed and agreed to by the stakeholder group. The initial screening was based on planning-level and qualitative assessments of the proposed strategies.

Improvement ideas that met the initial screen criteria were processed through a detailed screening that evaluated how well the different strategies addressed the study goals agreed to in the stakeholder meeting.

A total of 48 strategies were evaluated in the initial screening by the study team. The initial screening process evaluated the strategies based on three main criteria, as shown below in Figure 8-2.

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Figure 8-2. Initial Screening Process

Ideas that were screened out because they did not pass the three initial screening questions included: • Overpass for vehicles: Not practical nor criteria met for the study scope. • Overpass for wildlife: Did not meet criteria nor practical for study scope. • New highway from SR 167 to SR 410: Not practical for proposed study. • Improve SR 167: A separate project (Gateway Project) is currently underway to address

congestion issues along SR 167. • Toll SR 410: Not practical for this section of the SR 410 corridor. Would require statewide

legislative action to enact tolling along the roadway. • Constrain development: Local Control. Would need to be enacted by local jurisdictions, not

WSDOT. • Formation of Transportation Benefit District: Would need to be enacted by local jurisdictions,

not WSDOT.

The strategies that met the three initial screening criteria were presented at the June 2018 stakeholder meeting. Based on discussions with the stakeholders, ideas that passed the initial screen were further divided into three categories, including:

• Ideas that passed initial screening but fall outside WSDOT jurisdiction. • Ideas advanced to detailed screening but evaluated qualitatively. • Ideas advanced to detailed screening and evaluated quantitatively with performance metrics.

Ten ideas passed the initial screening but were not advanced to the detailed quantitative screening process because they are outside the jurisdiction of WSDOT direct influence. These ten ideas included:

• Construct pedestrian overpass at the SR 410 and Main Street intersection. • Connect Foothills Trail to SR 410 at future Flume Trail alignment.


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• Construct pedestrian bridge across the White River. • Construct frontage roads along SR 410. • Improve local alternative arterial routes. • Provide public transit service. • Expand existing vanpool marketing and availability. • Add park-and-pool lots. • Local agencies adopt complete streets ordinance. • Provide driver education and outreach.

Six ideas passed the initial screening but were not evaluated quantitatively. These ideas included: • Construct a couplet or highway bypass in Buckley – For the purpose of this planning study,

added capacity along SR 410 was analyzed only along the current roadway alignment. Any large-scale widening project is not expected to occur until well into the future. This study did evaluate several options to widen the SR 410 corridor, and results of this analysis are discussed in subsequent sections. Additional options, such as a couplet or bypass, could be analyzed later in the future.

• Adjust highway speed limits – WSDOT performed a series of spot speed studies in the study area along SR 410 in 2017. Speed limits reflecting the speed most motorists naturally drive are selected in part by determining the “85th percentile speed” (the speed at which 85 out of 100 vehicles travel, or below). Typically, the 85th percentile speed should be within 5 to 10 mph of the posted speed. When setting speed limits, engineers also consider other factors such as roadway characteristics, crash rates, and lighting. The spot speed studies show that the current posted speeds are appropriate. Lowering the posted speeds alone in the study area is not expected to improve travel time, predictability and traffic operations on SR 410. Research conducted by FHWA has shown that setting speed limits lower than 85th percentile speed alone does not encourage compliance with the posted speed limit. Studies indicate most drivers operate at speeds that are safe and reasonable given roadway and roadside conditions when selecting travel speeds, not the posted speed limit alone.

• Widen shoulders to accommodate bicycles/pedestrians – Review of bicycle and pedestrian movements at intersections along the highway were conducted as part of the traffic counts collected in May 2018. It was concluded that the volumes on the highway were fairly low. Significant use of the Foothills Trail was the single largest contributor to the low volumes on the highway.

• Improve signage and lighting – WSDOT conducts regular maintenance studies along the state’s highway system. Most recent reports within the SR 410 study area indicate that illumination and signage are within WSDOT standards. The reports noted locations where missing or damaged signs were updated, restored to their original condition, and/or replaced due to vandalism.

• Install median treatments – Median treatments can help reduce crash potential for specific crashes related to turning and provide access movements to and from driveways.. Median treatments include center two-way left-turn lanes or raised center islands. Results of the high-level safety analysis conducted for this study did not show locations along the highway that warranted median treatments. However, median treatments are an element in “complete street” design and should be considered by state, regional, and local plans when designing for complete streets.

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WAC 468-52-040 also identifies thresholds for median barrier treatment (Jersey Barrier) on state routes designated as Highway Access Management Class 2 and Class 3. The designation between the cities is Class 2 and the incorporated cities are Class 3 in Pierce County. Two-way left-turn lanes may be utilized where average daily traffic volumes are below 20,000 and 25,000, respectively. If the horizon year exceeds this threshold for proposed multilane widening, then a divided median or left-turn channelization should be planned instead of a two-way left-turn lane.

• Provide dedicated highway incident turnout areas along the SR 410 corridor – WSDOT Incident Response resources clear traffic incidents quickly, minimizing congestion and the potential of secondary incidents. Strategies include multiple shoulder pullout areas and incident response resources during peak travel times.

WSDOT, in agreement with the stakeholders, identified the following strategies to advance into the detailed screening and be quantitatively analyzed and evaluated. The strategies evaluated quantitatively with performance metrics include:

• Use TDM strategies. • Add a right-turn pocket/lane at the SR 410 and Park Avenue intersection. • Install a roundabout at the SR 410 and 234th Avenue E (233rd Avenue E) intersection. • Convert the SR 410 and Mundy Loss Road intersection from a signal to a roundabout. • Convert the SR 410 and Main Street intersection from a signal to a roundabout. • Convert the SR 410 and Park Avenue intersection from a signal to a roundabout. • Convert the SR 165 and SR 410 intersection from a signal to a roundabout. • Realign the SR 410 and Semanski Street (S 252nd Street) intersection and install a roundabout. • Add left-turn pockets at the SR 410 and Warner Avenue intersection and remove the split signal

phasing. • Install a roundabout at the SR 410 and Cole Street intersection. • Convert the SR 410 and Mud Mountain Road (241st Street) intersection to one way northbound

and install a roundabout at the SR 410 and 244th Avenue intersection. • Replace or expand the White River Bridge. • Widen SR 410 to three or four lanes. • Install ITS devices along the SR 410 corridor.

8.2 Detailed Evaluation of Strategies

8.2.1 Performance Metrics As part of the detailed screening process, the study team used WSDOT’s Draft Mobility Performance Framework to identify relevant data-driven performance measures and metrics that would help measure how different strategies address the study needs.

Using the performance metrics, strategies were analyzed from an overall corridor performance perspective with the goal of identifying and prioritizing strategies that most helped relieve congestion and improve travel times over the entire corridor, rather than only at individual locations. The proposed metrics evaluated congestion, travel times, safety, and environmental factors to create a “performance score.” The performance score was coupled with cost and implementation considerations to then rank


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the strategies. This study used four general metrics, in three categories, to measure performance as shown below in Table 8-1.

Table 8-1. Performance Measures and Metrics

Category Metric

Mobility Volume-to-capacity (v/c) ratio Travel Time Index

Safety Potential to improve safety

Environment Environmental impacts that could affect budget and schedule of future projects

Mobility Metrics

Volume-to-Capacity Ratio One way to measure congestion is to evaluate the volume-to-capacity (v/c) ratio of the corridor. This ratio is a measure that reflects mobility and quality of travel on a roadway or section of roadway. When using a v/c ratio, demand (vehicle volume) is compared to estimated capacity of the roadway during a certain time period. For this study, the AM and PM peak periods were evaluated. For detailed methods and assumptions used, see Appendix F.

The v/c ratio of the SR 410 corridor was assessed using two methods. The methodology for evaluating the v/c ratio varied due to the contextual differences along the corridor. To capture these contextual differences, the study area was divided into the following three segments:

• Segment 1 (234th Avenue SE to Mundy Loss Road) – In this section of the study area, SR 410 is primarily a two-lane highway with higher posted speeds and a limited number of widely spaced intersections. Because the number of lanes on the highway is the controlling factor, the v/c ratio for each direction was calculated by dividing the highest hourly volume by an assumed ideal capacity of 1,800 vehicles per hour.

• Segment 2 (Mundy Loss Road to the White River Bridge) – In this section of the study area, SR 410 is a two-lane highway with lower posted speeds and closely spaced intersections through downtown Buckley, including several signalized intersections. Because the signalized intersections are the controlling factor, the Synchro v/c ratio of the worst intersection in the segment was used to evaluate the critical movements on SR 410.

• Segment 3 (White River Bridge to Garrett Street) – In this section of the study area, SR 410 is primarily a two-lane highway with higher posted speeds and a limited number of widely spaced intersections. Because the number of lanes on the highway is the controlling factor, the v/c ratio for each direction was calculated by dividing the highest hourly volume by an assumed ideal capacity of 1,800 vehicles per hour.

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Travel Time Index Another way to measure congestion is to measure how different strategies impact corridor travel times and travel time reliability. Impacts to travel time were reported using the travel time index (TTI). The TTI is the ratio of the peak-hour travel time to the free-flow travel time2.

Safety Metric A Basic Analysis Level safety analysis was conducted for this study, following WSDOT guidelines and direction. This type of safety analysis presents only factual conclusions about current conditions.

Data from the safety study were reviewed and used in a qualitative assessment of potential safety improvements for each strategy. Potential strategies that could reduce serious injury or fatal crashes at intersections scored higher than strategies that have less potential to affect the number of serious injury or fatal crashes3.

Environmental Metric The proposed solutions were evaluated qualitatively to determine impacts to the environment. As part of this evaluation, the study team coordinated with WSDOT Headquarters to consider environmental data during planning. This data is the starting point for future environmental review and can help WSDOT adequately scope and avoid revisiting decisions made during this planning study.

As part of the qualitative assessment, the team assessed environmental resources in or adjacent to the study area to define the environmental context of the corridor. A full summary of the environmental ratings is in Appendix I and in the summary of Stakeholder Meeting #4 in Appendix B. Overall, the environmental issues in the corridor can be resolved by complying with environmental laws typical of transportation projects. Longer term solutions are likely to require further analysis and documentation to implement, and should include more detailed scoping if those solutions are pursued.

The team assessed near-, mid-, and long-term proposed solutions against environmental impacts and regulatory compliance strategies to estimate their cost and schedule impacts to each potential strategy. Strategies that had the potential to incur higher costs or longer schedules due to environmental factors scored lower than strategies with limited potential for cost and schedule impacts due to environmental factors. Environmental issues likely to affect budget and schedule include minor mitigation needs, including wetland impacts and hazardous materials assessment and abatement impacts to recreational resources, and negotiating potential right-of-way needed for some of the proposed solutions. A summary of existing hazardous material facilities, wetlands, floodway and floodplains within the study area are described below.

Before solutions are pursued that are likely to require these environmental considerations, further investigation should be completed to better understand the extent of impact and mitigation needed. Other factors considered included environmental priorities for WSDOT and external partners, and

2 Free-flow travel time is the time it would take to travel the corridor under ideal conditions, i.e., no delay at signals and no delay due to traffic turning onto or off SR 410. 3 This does not suggest potential improvements are more or less safe. Rather, if an intersection does not have serious injury or fatal crashes, there is limited potential for a strategy to reduce the number of serious injury or fatal crashes.


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evaluating whether potential strategies could be addressed by avoiding potential environmental impacts.

Hazardous Materials Sites Within King County, there are eight unique hazardous materials facilities within the study area; there are over 50 unique hazardous materials facilities within 1 mile of the corridor (Figure 7-3a).

King County locations/facilities in the study area include:

1. The QFC #863 fuel site (1009 Monroe Avenue) is listed as an underground storage tank (UST) site.

2. The Art Gamblin Motors site (1047 Roosevelt Avenue E) is listed as a UST and hazardous waste generator.

3. The Mr. Sudsy Car Wash – Enumclaw site (416 Roosevelt Avenue East) is listed as a leaking underground storage tank (LUST), UST, and voluntary cleanup site.

4. The Tacoma Public Utilities Enumclaw Shops site (560 WA-410) is listed as a UST, hazardous waste generator, and hazardous waste management activity.

5. The Enumclaw Wastewater Water Treatment Off-Site on SR 410 is listed as a 401-Coastal Zone Management Act (CZMA mitigation site).

6. The Boise Grocery site (46918 244th Avenue SE) is listed as a UST site.

7. The WSDOT White River Bridge site on SR 410 is listed as a hazardous waste generator and hazardous waste management activity.

Within Pierce County, there are 13 unique hazardous materials facilities within the study area; there are over 40 unique hazardous materials facilities within 1 mile of the corridor (Figure 7-3b).

Pierce County locations/facilities in the study area include:

1. The Ronald J Van Sickle site (287 WA-410) is listed as a UST, LUST, state cleanup site, and voluntary cleanup site.

2. The Buckley Library site (123 S River Road) is listed as a UST and LUST site.

3. The 1st Choice Chevron (29297 WA-410) is listed as a UST, LUST, and voluntary cleanup site.

4. The Buckley 76 site (29211 WA-410) is listed as a UST site.

5. The Walt & Verns Pickup Parts site (28520 WA-410) is listed as a UST, hazardous waste planner, hazardous waste generator, state cleanup site, and voluntary cleanup site.

6. The Kuehn Commercial Property site (28238 WA-410) is listed as a construction stormwater general permit.

7. The Fifth Element Properties LLC site (28201 WA-401) is listed as a construction stormwater general permit.

8. The Genesis Properties LLC site (27971 WA-410) is listed as a construction stormwater general permit.

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9. The Leon’s Deli Express site (27909 WA-410) is listed as a UST, LUST, state cleanup site, and voluntary cleanup site.

10. The 410 Auto Wrecking site (27865 WA-410) is listed as an industrial stormwater general permit and local source control.

11. The Dave’s Deals on Wheels site (27815 WA-410) is listed as a local source control site.

12. The Shear Trucking site (26719 WA-410) is listed as a state cleanup site and voluntary cleanup site.

13. The Hiway Grocery site (23315 WA-410) is listed as a UST and LUST site.

Wetlands Within King County, there are NWI-mapped wetlands on either side of the White River that cross over SR 410 (Figure 7-3a). There are King County-mapped wetlands east of the corridor that are inconsistent with the NWI wetlands, but they are not in close proximity to the study area.

Within Pierce County, there are NWI-mapped wetlands that span SR 410 where the highway crosses the White River and the White River Canal (Figure 7-3b). There are also several smaller NWI wetlands within the corridor study area between Mundy Loss Road and Hinkleman Road, at 262nd Avenue East, and between 234th Avenue East and 254th Avenue East. In addition to the NWI-mapped wetlands, there are also CWI-mapped wetlands located within the corridor study area between 234th Avenue East and Mundy Loss Road. The Pierce County wetland areas mapped by NWI and CWI are both shown in Figure 7-3b, which demonstrates the inconsistencies between the two datasets.

Floodway and Floodplains Floodways are defined as channels of rivers or streams and parts of adjoining floodplains that are required to efficiently carry and discharge the floodwater of a river or stream. Floodplains are defined as the area adjoining a river or stream that may be covered by a 100-year flood, and are mapped by the Federal Emergency Management Agency (FEMA). In the study corridor, the FEMA 100-year floodplain extends outwards from both the White River and Boise Creek to varying distances depending on topography, intersecting the study area in multiple locations along SR 410 (Figure 7-3a, Figure 7-3b). The floodplain is particularly impactful to the study area along Boise Creek where it parallels the highway and extends north to Roosevelt Avenue in Enumclaw.

Additionally, Pierce County identifies Special Flood Hazard Areas (SFHAs), which are areas where flood insurance is required for federally-backed structures. SFHAs intersect the study area at the White River crossing and White River Canal crossing (Figure 7-3b).

8.2.2 Performance Evaluation

Combined Mobility Score Each direction of SR 410 (westbound and eastbound) was evaluated and given a “mobility score” for each peak hour (AM and PM) for both the v/c ratio (for each of the three segments) and the TTI (for the corridor as a whole).

A “combined mobility score” was calculated for each strategy by adding together the v/c mobility scores for each segment and the TTI score for the corridor, both calculated as the average of the westbound PM score and the eastbound AM score, as these are the critical directions during the respective peaks.


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Total Performance Score The individual scores for the three performance metrics (mobility, safety, and environmental) were combined into a “total performance score” for each strategy. A total performance score was calculated for the near-, mid-, and long-term analysis years for each strategy analyzed. The performance scores range from 0-30, with a score of 30 being the best possible performance score.

Planning-Level Cost Estimates Planning-level cost estimates were developed for each potential strategy, incorporating probable costs associated with engineering, environmental, construction, and project-related costs. The cost estimates were conducted in 2018 dollars.

The cost estimates were based on material cost per length and width of improvement areas, plus a 50 percent contingency for unknown work. A 50 percent Design and Construction contingency of the material cost was added to cover Engineering/Design and Construction of each project.

Scores were assigned based on the cost of each potential improvement. Lower-cost strategies score better than higher-cost strategies.

Cost scores ranged as follows: • $0–$500,000 = 5 points • $500,001–$1,000,000 = 4 points • $1M–$5M = 3 points • $5M–$7.5M = 2 points • $7.5M–$10M = 1 point • >$10M = 0 points

Overall Benefit Score An overall benefit score was calculated to identify strategies that could provide the maximum system performance at the lowest costs. The score was calculated by dividing the total performance scores by the estimated cost of implementation. Each strategy would receive an overall benefit score for the years 2025, 2030, and 2040.

Results of Performance Evaluation Detailed results of the metric performance, planning level costs estimates and scoring are included in Appendix I. In summary, the results of the detailed performance analysis indicated:

• Signals at the intersections of Park Avenue and Main Street are the primary constraints on the corridor. Queuing from these intersections spills back over the White River Bridge and past 244th Avenue SE during the PM peak hour.

• Addressing the congestion originating at Park Avenue and Main Street will help improve travel times and extend the operational functionality of the White River Bridge.

• Converting the existing signals at Park Avenue and Main Street to roundabouts will add capacity at these intersections and improve operations, relieve congestion, and improve travel times without the need to widen the entire highway in the near- or mid-term time periods.

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• Converting other existing signals to roundabouts in the future will provide additional capacity along the highway without the need to widen the entire highway in the near- or mid-term time periods.

• Widening of the SR 410 corridor would relieve congestion and travel times, but it is not feasible in the near- or mid-term time period due to funding constraints.

The analysis also indicated that several strategies, while low-cost, did not offer any substantial performance benefit to the corridor. These strategies included:

• Adding left-turn pockets on Warner Avenue and removing the split phase signal timing. • Installing signals at Cole Street, 254th Avenue SE, and 262nd Avenue SE. • Installing a roundabout at 262nd Avenue SE. • Changes to access along SR 410 were evaluated at several locations including Wheeler Avenue,

Hinkleman Road and 254th Avenue S. A center turn lane on SR 410 was analyzed at these locations and resulted showed this access change did not offer any substantial improvements to travel times, predictability and traffic operations on SR 410. Additionally, existing and forecasted turning volumes at these intersections do not meet WSDOT's minimum requirements for left-turn storage.

Other strategies were evaluated and prioritized into near-, mid-, and long-term recommended strategies based on 1) ability to improve corridor performance, and 2) the practicality of potential funding and construction timelines for each strategy. Recommendations are discussed in the following section.


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9. RECOMMENDED IMPROVEMENT STRATEGIES The final screening process and list of recommended improvement strategies was presented to the stakeholders for concurrence. Results and recommendations were also presented to the public in an open house. The recommendations align with WSDOT’s Practical Solutions approach of implementing demand management and operational improvement first, then investing in capital projects. With all future strategies, specifically mid- and long-term, WSDOT will reevaluate the investment value and benefit before proceeding with a project level design.

9.1 Near-term Strategies (2025) Recommended near-term strategies include those shown in Table 9-1.

Table 9-1. Recommended Near-Term Strategies

Near-term Strategies

Description

TDM TDM strategies aimed at changing travel behavior rather than expanding vehicle capacity to meet travel demand (e.g., promotion of work hour changes, rideshare options, parking policies, park-and-pool lots, and telecommuting). Emerging transportation trends and technologies should be monitored to understand the influence on travel behavior and the transportation system.

ITS ITS have the potential to lower crash potential and improve mobility through the use of advanced wireline and wireless communications technologies. Strategies include electronic traveler information, Highway Advisory Radio, and road and weather information systems.

Driver Education and Outreach

Driver Education/Outreach strategies include education and public outreach to better inform and educate the traveling public. This strategy is largely looked to be facilitated by others, i.e., Washington Traffic Safety Commission and American Automobile Association of Washington.

Active Transportation Strategies

Active transportation is any self-propelled, human-powered mode of transportation, such as walking or bicycling. Improving bicycle and pedestrian facilities can encourage active transportation such as children biking to school or employees walking to work. Strategies include Safe Routes to School programs, comprehensive street design that includes “complete streets,” and providing safe and convenient bike and pedestrian connections to parks and recreation areas, including the Foothills Trail. WSDOT should coordinate with local jurisdictions to the greatest extent possible to provide technical services and funding assistance in support of active transportation projects.

Incident Management

WSDOT Incident Management resources clear traffic incidents quickly, minimizing congestion and of the potential for secondary incidents. Strategies include multiple shoulder pullout areas and incident response resources during peak travel times.

Intersection Channelization

Add a westbound right-turn lane at the SR 410 and Park Avenue intersection.

9.2 Mid-term Strategies (2030) The next set of recommended strategies includes capital investments that are expected to help significantly relieve congestion along the SR 410 corridor within the study area. As there is currently no funding available for these proposed strategies, they will have to compete for funding with other proposed improvements around the state. Therefore, even though these proposed strategies would help relieve congestion in the near-term as well as the mid-term timeframe, they are recommended for the mid-term (2030) due to limited state funding. Recommended mid-term strategies are listed below and described in detail in the following sections.

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Priority Mid-term Strategies

Intersection improvements on either side of White River Bridge • Convert signals at Park Avenue and Main Street to roundabouts • Following these improvements, install roundabout at 244th Avenue SE

and close access at SR 410/241st Avenue SE

Other Mid-term Strategies

Improve capacity at other intersections along the highway • Add storage or capacity at the SR 410 and SR 165 intersection by

extending the westbound left turn pocket or converting the signal to a roundabout

• Convert the following signals to roundabouts:

SR 410 and Mundy Loss Road intersection

SR 410 and 233rd Avenue SE (234th Avenue SE) intersection

• Realign the SR 410 and Semanski Street S (252nd Avenue SE) intersection and install a roundabout

9.2.1 Priority Mid-term Strategies

Roundabouts at Park Avenue, Main Street, and 244th Avenue SE The key priority for the mid-term strategies is to improve intersection operations on either side of the White River Bridge, specifically the intersections of Park Avenue, Main Street, 241st Avenue SE, and 244th Avenue SE.

The intersections of Park Avenue and Main Street are the primary constraints on the corridor. Delays from the signals at these intersections cause congestion and queues that spill back over the White River Bridge and past 241st Avenue SE and 244th Avenue SE during the PM peak hour and other congested times.

During the PM peak commute hours, southbound volumes on both 241st Avenue SE and 244th Avenue SE are high. It is assumed, based on conversations with stakeholders and the public, that this traffic is non-local traffic that is using SR 164/244th Avenue SE/SR 410 as an alternative route to SR 167. Queues extend north up both 241st Avenue SE and 244th Avenue SE as drivers wait to turn onto westbound SR 410. Once the westbound queue on SR 410 extends through the intersections of 241st Avenue NE/Mud Mountain Road and 244th Avenue SE, vehicles from these side streets cut into the queued traffic on SR 410 after every other vehicle.

Replacing the existing signals at Park Avenue and Main Street with roundabouts adds capacity along SR 410 at intersections, improving operations and travel times along the highway, reduces high-severity crashes and significantly reducing westbound queues without the need to add additional capacity over the White River or widen the entire highway until the long term.

Adding a roundabout at Park Avenue will make it harder for vehicles traveling southbound on 241st Avenue SE and 244th Avenue SE to access SR 410 because queues along SR 410 will be reduced, thereby allowing traffic along SR 410 to move close to posted speeds instead of at slow speeds due to


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congestion. Therefore, closing the 241st Avenue SE access to SR 410 and adding a roundabout at 244th Avenue SE intersection is also recommended as a mid-term priority strategy.

At the public Open Houses held in October 2018, a suggestion to restrict turns at 241st Avenue SE during peak times only was suggested. Further study of this option would be needed by WSDOT and local jurisdictions. To allow for full access during non-peak times, access restrictions would need to be made with signage only. Without physical barriers to restrict turning cars or regular enforcement, the benefits of this option would likely not be seen.

Adding a roundabout at 244th Avenue SE will provide gaps for southbound traffic to turn onto SR 410 with minimal delay. Closing access at 241st Avenue SE, a residential street, and directing all traffic to 244th Avenue SE, a major arterial, is also recommended as part of this strategy. This will help reduce crash potential and operations in the area by reducing access points along SR 410.

Benefits of Roundabouts Contrary to common perceptions, roundabouts move traffic through an intersection more quickly, and with less congestion on approaching roads, because they promote a continuous flow of traffic. Unlike signalized intersections, roundabouts do not require drivers to wait for a green light to proceed through the intersection. Traffic is not required to stop—only yield—so the intersection can handle more traffic in the same amount of time.

Studies by Kansas State University measured traffic flow at intersections before and after conversion to roundabouts. In each case, installing a roundabout led to a 20 percent reduction in delays. Additional studies by the IIHS of intersections in three states, including Washington, found that roundabouts contributed to an 89 percent reduction in delays and 56 percent reduction in vehicle stops.

Additionally, studies have shown that roundabouts are safer than traditional stop-sign or signal-controlled intersections. Roundabouts reduced injury crashes by 75 percent at intersections where stop signs or signals were previously used for traffic control, according to a study by the IIHS.

9.2.2 Additional Mid-term Strategies Adding roundabouts at the intersections of Park Avenue, Main Street, and 244th Avenue SE are expected to help address the primary constraints along the corridor by reducing delays and significantly reducing queues. However, to ensure that these improvements do not simply move an existing problem “downstream,” roundabouts and other strategies to increase capacity are recommended at the following intersections as part of WSDOT’s mid-term strategies:

• Add capacity at the SR 410 and SR 165 intersection by extending the westbound left-turn pocket or converting the signal to a roundabout.

• Convert the following signals to roundabouts:

SR 410 and Mundy Loss Road intersection.

SR 410 and 233rd Avenue SE (234th Avenue SE) intersection. • Realign the SR 410 and Semanski Street S, and the SR 410 and 252nd Avenue SE intersections

and install a roundabout.

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9.3 Long-term Strategies (2040) Recommended long-term strategies involve widening the SR 410 corridor to add more lanes. Results of the detailed screening analysis showed that widening the highway through Buckley would add sufficient capacity to meet the 2040 forecasted traffic demand. Adding additional capacity over the White River would not be needed until after the planning horizon of this study (year 2040).

Several options of widening the highway were evaluated: • Widen SR 410 to three lanes between Park Avenue and SR 165. • Widen SR 410 to four lanes, adding an additional lane in each direction, between Park Avenue

and Mundy Loss Road. • Assume roundabouts at Park Avenue, Main Street, and SR 165 for both options.

While both options would not require additional capacity over White River until after 2040, the option to add four lanes through Buckley would significantly extend the operational capacity of the corridor and extend the operational life of the White River Bridge.

However, widening the highway is a significant capital investment and can require additional right-of-way. Some homes, farmland, businesses, utilities, and highway access would be impacted. Depending on funding availability, a phased approach could be used to help address the most congested sections of the corridor without the need to widen the entire corridor, minimizing potential impacts and reducing potential costs.

Other long-term strategies include adding roundabouts at the intersections of Cole Street and 254th Avenue SE.

9.3.1 Strategies Beyond 2040 Several strategies evaluated as part of the detailed screening showed benefits to the operations of the corridor but are not anticipated to be needed until beyond the planning horizon of this study. These options include:

• Widen SR 410 between 244th Avenue SE and Park Avenue to four lanes. This option would require four lanes over the White River. Options for replacing the White River Bridge and the Flume Bridge are discussed in the following section.

• Provide five lanes on SR 410 (two eastbound, two westbound, left turn lanes where needed) from 234th Avenue E near Bonney Lake to Roosevelt Street in Enumclaw. This option is consistent with recommendations made in the Route Development Plan – State Route 410, SR 167 to King County Line.

9.3.2 White River Bridge As part of this study, the study team evaluated the safety performance and mobility benefits of replacing or expanding the White River Bridge between Enumclaw and Buckley to four lanes and removing the trestle. Preliminary analysis indicated that widening the existing structure is not feasible. To expand capacity over the White River to four lanes, an additional bridge will be needed. Options for bridge replacement included both two- and four-lane options. A two-lane bridge option would include two westbound lanes and assumes the existing bridge would remain and be converted to two eastbound lanes. A four-lane bridge option assumes all traffic on the new bridge. A detailed summary of the preliminary analysis is included in Appendix J. A second bridge over the flume canal would also need to be constructed.


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The consultant’s design team compared alternatives for various bridge replacements using a list of critical study criteria and proposed improvements and impacts. Criteria were developed for environmental, social, and cost considerations associated with the SR 410 Study. The criteria are listed below.

• Environmental:

Natural River Flow Conditions

Natural Bank Habitat Conditions • Social:

Temporary Mobility of Traffic

Final Connections to SR 410 • Costs:

Construction Costs (Bridge and Approaches)

Future Maintenance and Inspection Frequency

Right-of-Way Costs

A Type, Size and Location (TSL) study is the likely next step to further evaluate bridge replacement options in more detail.

Regardless of which bridge replacement option is advanced in the future it is recommended that SR 410 be widened to four lanes, with appropriate medians per relevant roadways classification, between Park Avenue and 244th Avenue SE when an additional bridge is constructed over the White River.

9.4 Planning Level Costs Planning-level cost estimates were developed for each potential strategy, incorporating probable costs associated with engineering, environmental, construction, and project-related costs. The cost estimates were conducted in 2018 dollars. Cost estimates for the recommended strategies are shown below in Tables 9-2.

Planning level cost estimates are based on little or no design-level work resulting in unknown factors that may lead to changes in the future. The planning level cost estimates were based on material cost per length and width of improvement areas, plus a 50 percent contingency for unknown work. A 50 percent Design and Construction contingency of the material cost was added to cover Engineering/Design and Construction of each project.

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Table 9-2. Planning Level Cost Estimates

Near-term Strategies (2025) Cost (in millions)

Transportation Demand Management (TDM) $0.5

Intelligent Transportation Systems (ITS) < $0.5

Driver Education and Outreach < $0.5

Active Transportation Strategies < $0.5

Incident Management < $0.5

Add right-turn pocket/lane to WB SR 410 at Park Avenue $0.81

Mid-term Strategies (2030) Cost (in millions)

Convert Main Street Signal to Roundabout $3.15

Convert Park Avenue Signal to Roundabout $3.27

Close 241st, install roundabout at 244th Ave $2.01

Convert SR 165 Signal to Roundabout $5.66

Convert Mundy Loss Signal to Roundabout $3.72

Convert 234th Ave E/233rd Ave E Signal to Roundabout $3.11

Realign Semanski St/S 252nd and install a Roundabout $2.04

Long-term Strategies (2040) Cost (in millions)

Widen SR 410 to 3 lanes (SR 165 to Park Avenue)1 $9.88

Widen SR 410 to 4 lanes (Mundy Loss to Park Avenue)1 $20.98

Install Roundabout at Cole Street $2.05

Install Roundabout at 254th $2.19

Strategies Beyond 2040 Cost (in millions)

Widen SR 410 to 5 lanes (234th to Roosevelt, MP 16.8 - 24.3)2 $67.58

Widen SR 410 to 4 lanes (Park Ave to 244th Ave SE)2 $39.28

1 Assumes roundabouts already installed at Park Avenue, Main Street and SR 165

2 Includes additional capacity at Flume Bridge and White River Bridge


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10. NEXT STEPS The recommended strategies identified in this study will assist WSDOT and other agencies with addressing congestion issues along the SR 410 corridor between 234th Avenue E and Garrett Street. These strategies will be prioritized on a statewide basis for future implementation, but due to limited state funding, will need to compete for funding with other proposed improvements throughout the state absent other funding sources. Upon completion of this report, funding to complete the recommended strategies, whether from the state, grants, developer contributions, or other sources, need to be pursued.

A TSL study to further evaluate bridge replacement options in more detail is recommended.

Highway corridor improvements could be pursued by the City of Buckley and the City of Enumclaw, but design efforts and improvement funding would need to be approved locally and contained in the Statewide Transportation Improvement Program.

WSDOT will work with stakeholders and partners to implement low-cost strategies such as TDM, which includes vanpools and carpools in the near-term. WSDOT will use the results of the study to continue to work with interested partners on the strategies considered pertinent and viable over the near-, mid-, and long-term operation of the highway corridor. The transportation system is subject to many changes and variables, but our commitment remains to work with the community to move people and goods safely and efficiently.”

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