Figure 1-1. Study Area 2
Figure 1-2. Sound Transit Long-Range Plan 3
1.2 Goals, Objectives, and the Need for HCT Sound Transit developed a set of HCT guiding principles, goals, and objectives for the Long-Range Plan update (Table 1-1). These goals and objectives, as well as the purpose and need for improvements in the South King County corridor (presented after this section), helped guide the study to measure the effectiveness of potential improvements. The guiding principles are: Be consistent with the state Growth Management Act (GMA) Be consistent with VISION 2040, the region s adopted growth strategy Be consistent with Transportation 2040, the region s Metropolitan Transportation Plan Be consistent with the state High Capacity Transportation Systems Act (RCW 81.104) Support City and County measures enacted to manage growth and reduce single-occupancy vehicle (SOV) use in major centers Support the regional economy and preserve a high quality of life Increase the value of Sound Move and ST2 investment in projects and services Examine effective HCT alternatives to SOV use, as identified in ST2 and/or as directed by the Sound Transit Board Table 1-1. Sound Transit s HCT Goals and Objectives Goal Objectives Provide a transportation system that facilitates long-term mobility Enhance communities and protect the environment Contribute to the region s economic vitality; increase access to jobs, housing, education, and other community resources; enhance the region s ability to move goods and services; and promote economic development Strengthen communities access to, and use of, the regional transit network Develop a system that is financially feasible Improve transit connections to key transit markets and regional growth centers Must operate service principally in exclusive rights-of- way to be considered as High- Capacity Transit Improve the reliability of transit service Conserve energy resources, control air pollution, and preserve the environment Support communities ability to develop sustainably, consistent with state and regional laws and growth management policies Support economic growth by linking the region s designated growth centers Support transit-oriented development in station areas Develop transit options that connect to existing and future bicycle, pedestrian, HOV, and transit networks Improve people s ability to access transit Develop equitable transportation solutions Develop cost-effective and efficient transportation solutions Develop a system that is affordable to build, run, and use 4
The Purpose of HCT in the South King County Corridor The purpose of extending the regional HCT system in the South King County corridor is to: Provide reliable, rapid, and efficient two-way, peak, and off-peak transit service to help meet the long-term demand for travel between the South King County corridor communities and other communities in the central Puget Sound region Support regional and local growth management plan goals to focus growth in centers connected by a high-quality multimodal transportation system Enhance communities by improving access to jobs, housing, education, and community resources in the corridor and the region Improve the effectiveness of the regional multimodal transportation system by creating an alternative to travel on congested roadways and extending the value of previous regional transit system investments Protect the environment and promote healthy, equitable, and sustainable communities by improving transit service and encouraging other ways to travel than by SOV The Need for HCT HCT improvements in the South King County corridor are needed to address: Increasingly unreliable travel times for transit trips made on the corridor s congested roadways Insufficient transit capacity to meet the demands of future population and employment in the corridor High levels of future population and employment growth in designated regional centers in Seattle, Burien, SeaTac, Tukwila and Renton, as well as in designated activity centers in the corridor Requirements of the state s GMA and the direction of PSRC s VISION 2040 and Transportation 2040, as well as the adopted comprehensive plans of King County and its cities calling for adequate transportation systems to meet the needs of future population and employment growth. 1.3 Problem Statement Summary Over the next 25 years, the Puget Sound Region will focus future housing and jobs towards regional growth centers, as designated by the PSRC. Sound Transit s services will help connect these centers, several of which are in the South King County corridor (Figure 1-1). The north-south portion of the South King County study corridor extends from Downtown Seattle through SODO (South of Downtown), to West Seattle, and south to Burien. The east-west portion of the corridor extends from Burien to Renton via SeaTac and Tukwila. The South King County corridor contains a mix of urban and suburban areas characterized by: dense residential and employment areas within the City of Seattle, low-to-mid density residential areas of unincorporated King County, moderately dense residential areas in the cities of Burien, SeaTac, Tukwila, and Renton. Existing transit usage in the corridor is high due to the proximity to major regional attractions along with the socio-demographic characteristics of the area. High levels of redevelopment between now and 2035 are anticipated within this corridor, along with substantial increases in employment in Downtown Seattle (PSRC, Vision 2040). The expected land use and demographic mix could lead to higher transit growth. HCT would provide this growth with a more reliable transit travel option. Topographic and physical barriers currently limit connectivity within the corridor, providing opportunities for a new HCT system to connect centers. To be more responsive to transit needs, HCT should recognize the different travel markets within the corridor and provide convenient links to existing regional transit services. 5
2- Previous Studies and Findings This section identifies previous studies and planning documents with relevant information that might affect this study. 2.1 Plans, Policies, and Legislation This document provides a brief summary of the consistency of the South King County HCT Corridor Study with state, regional, county, and municipal land use plans, policies, and legislation. Washington State GMA The Washington State GMA requires the use of multicounty planning policies to provide a common framework for coordinated local, county, and regional planning. Local governments within the Sound Transit district coordinate within the regional framework of the Puget Sound Regional Council (PSRC) for policy and plan review to coordinate actions and satisfy GMA requirements. The countywide policies provide a framework for local land use plan and policy consistency with county and regional plans in order to concentrate growth to urban areas, reduce sprawl, and encourage efficient transportation systems. Regional Growth Strategy PSRC regional growth strategy policy documents include Vision 2040, Transportation 2040, and the Growing Transit Communities Strategy (PSRC, 2009, 2010, 2013). Vision 2040 directs that the majority of regional growth (1.7 million new people and 1.2 million new jobs forecasted in the Puget Sound area by 2040) to occur in compact growth patterns in designated regional growth centers, seven of which are within the study area: Downtown Seattle, Greater Duwamish Manufacturing and Industrial Center, Downtown Burien, Central SeaTac, Tukwila (Southcenter Area and North Tukwila MIC), and Downtown Renton. Relevant goals developed by the PSRC include promoting transit-oriented development and connecting regional growth centers with HCT corridors. These strategies are considered the action plan for addressing growth in the central Puget Sound region. Sound Transit A number of Sound Transit documents provide policy guidance that defines this South King County HCT Corridor Study. Sound Move, adopted by the voters of the Central Puget Sound Regional Transit District (Sound Transit) in 1996, identified West Seattle, Fauntleroy, Burien, and Renton as candidates for regional express bus service. Sound Transit s 1995 Long-Range Plan was updated in 2005 and outlined the key goals and objectives for HCT (service provided by light rail transit (LRT), commuter rail, or bus rapid transit (BRT) with frequent all-day coverage principally in exclusive right-of-way) within the region (Sound Transit, 2005). The Burien-Renton corridor was targeted for BRT in the 2005 Long Range Plan, while the West Seattle-to-Downtown Seattle route was recommended to be served by express bus service, along with the proposed monorail 1. The ST2 Plan, adopted by the voters in 2008, provides funding and expands the original Sound Move transportation package. The plan designated the Downtown Seattle-West Seattle-Burien and Burien- Renton corridors as candidates for specific HCT studies (Sound Transit, 2008). 1 The monorail project was subsequently cancelled. 6
Local Plans and Policies King County King County encourages land use patterns that locate medium- to high-density development in urban centers with transit service to support transit ridership throughout the county, thus implementing PSRC s VISION 2040 regional strategies as the framework for creating urban centers linked by HCT. King County identifies Urban Centers in unincorporated areas. Five of these are located within the Study Area: White Center (Unincorporated Activity Center), Top Hat and Roxhill (Community Business Centers) and Avondale Corner and Unincorporated South Park (Neighborhood Business Centers). Seattle The City of Seattle Comprehensive Plan (2005), directs most of its future growth into regional growth centers and locally-designated hub and residential urban villages. Within the study area, Downtown Seattle is a regional growth center, SODO is in the Duwamish MIC, the West Seattle Junction is a hub urban village and Morgan Junction is a residential urban village. Hub urban villages are expected to be strategic locations in the local and regional transportation network, with 15-minute or better peak hour transit headways and the possibility of improved connections to future HCT stations. The city is currently in the process of updating its comprehensive plan, with an expected completion by mid-2015. Seattle urban centers and MICs are targeted to absorb over half of the population growth and over three quarters of future job growth; the hub urban villages are targeted to absorb a minor percentage of future job growth, while hub and residential urban villages are targeted for one quarter of the total population growth. The Comprehensive Plan also establishes a Transit Communities category, a subset of urban centers and villages, as complete, compact, connected places within easy walking distance of reliable, frequent transit service to multiple destinations. The Seattle Transit Master Plan identifies a Frequent Transit Network (FTN) vision for a network of transit corridors that connect the City s urban centers and villages with high-quality transit service within a short walk for most residents. The FTN identifies future Planned Rapid Ride/BRT corridor(s) in West Seattle. Burien The Burien Comprehensive Plan (2013) includes key goals of creating a sustainable community, reinforcing the city s small-town character, creating a thriving, pedestrian-friendly downtown, and accommodating growth. Identified locations for future residential and employment growth will be focused near the Burien Transit Center, in Downtown Burien, and the Northeast Redevelopment Area (NERA), located east of Downtown Burien near Sea-Tac Airport. The transportation element of the Comprehensive Plan gives priority to connecting public places with nonmotorized travel and calls for exploring the feasibility of commuter rail or light rail with Sound Transit. It calls for promoting transit-oriented development at the Burien Transit Center with uses that support the city s vision for downtown and the Town Square. The transit center is currently served by King County Metro and Sound Transit s Regional Express bus services. The Plan specifies transit priority routes for 16th Avenue SW and Ambaum Boulevard SW, however it requires that an HCT corridor not lower roadway LOS below city-defined standards. SeaTac The City of SeaTac Comprehensive Plan (2012) acknowledges Sea-Tac Airport as a major regional facility, which is currently served by Central Link Light Rail and multiple bus routes. The Comprehensive Plan highlights the goal of focusing new development near the Tukwila International Boulevard Station (TIBS) and emphasizes the need for better east-west connections, preferably through the City Center, 7
near S 176th Street. The SeaTac regional growth center, a linear corridor stretching approximately three miles along International Boulevard (SR-99), is comprised of three subareas: the S 154th Street (TIBS) Station Area, the City Center, and the SeaTac/Airport Station Area (a subarea of the City Center). The SeaTac City Center is envisioned to be redeveloped into a pedestrian-oriented center, breaking up the superblocks and building on existing parking lots. The Action Plan for the Tukwila International Boulevard/S 154th Street Station Area sets the stage for new business opportunities, new services for SeaTac residents, and new housing opportunities in a compact, walkable area. Tukwila The City of Tukwila Comprehensive Plan (2011) designates the Tukwila Urban Center (Southcenter) as its primary growth area. The Urban Center Plan, adopted by the Tukwila Council in June 2014, includes breaking up the super blocks into a smaller grid, adding dense residential development, and creating a more urban environment. Tukwila is currently served by Sound Transit s Link light rail and Sounder commuter rail. The Comprehensive Plan includes policies to promote restructured zoning to allow for mixed-use development along major transportation corridors. The Comprehensive Plan states that major transit facilities should be located near I-405 and SR 99 with connections to the S 154th Street/Southcenter Boulevard area, the Tukwila Urban Center (Southcenter), and the Sounder station. Renton The City of Renton Comprehensive Plan (2011) includes policies to focus more intense mixed-use development in the Downtown Urban Center, to enhance commercial corridors on the downtown perimeter and to connect the Urban Center and Downtown Transit Center to the regional HCT system. The City Center Community Plan (2011) includes consideration of development of small-scale mixed use retail and a future streetcar line along Park Avenue N to connect the historic downtown to The Landing. HCT is specified for SR-900, I-405, SR-167 and Logan Avenue N with the Renton Transit Center as a main connection point. 2.2 Previous Studies Downtown Seattle Transit Studies Two recently completed project studies include the Ballard to Downtown Seattle Transit Expansion Study, led by Sound Transit in partnership with the City of Seattle, and the Center City Connector Transit Study, led by the City of Seattle. Both corridors were identified as HCT Rail corridors in the Seattle Transit Master Plan. The Ballard to Downtown Seattle study has potential corridors that terminate near 2nd Avenue and Stewart Street in Downtown Seattle (Sound Transit, 2013). The Center City Connector Study evaluated the viability of a streetcar to connect north downtown, near the Westlake hub, to south downtown, near King Street Station. The Locally Preferred Alternative (LPA) for the Center City Connector is on 1st Avenue between Stewart Street and Jackson Street (SDOT, 2014). The terminus evaluated in the Ballard to Downtown study could present the opportunity to interline potential service examined in this study. The Center City Connector is designed to provide a key link to transit service north of and south of Downtown Seattle, and could complement the South King County HCT corridor. I-405 Corridor Studies Sound Transit and WSDOT have completed a variety of plans and studies related to the I-405 and Burien-Renton corridor areas. The I-405 Master Plan, completed in 2002, provided a vision of what the I- 405 corridor would look like in the future, and identified BRT service along I-405 as a means of relieving congestion (WSDOT, 2002). BRT would be supported through additional HOV or Express Toll Lanes, HOV direct connector ramps, freeway flyer stations, and HOV freeway-to-freeway connections. Subsequent BRT studies by WSDOT in 2003 and 2005 provided further definition for BRT along I-405. 8
Along with specifying stop locations, the 2005 study recommended North Renton as a key future activity center, with direct access ramps and a transit center as part of the BRT implementation (WSDOT, 2005). The report also highlighted that a connection to Sea-Tac Airport through Tukwila was an important boost to ridership in the corridor. Sound Transit Long-Range Plan (2005) As part of the Long-Range Plan update in 2005, Sound Transit studied an LRT connection between Burien and Renton. Station locations included the Burien Transit Center, Tukwila International Boulevard, Southcenter, Tukwila Sounder, Downtown Renton, and North Renton. Alignment options were typically elevated near SR-518, S 154th Street in Tukwila, Southcenter Boulevard, Andover Park West, and Grady Way (Sound Transit, 2005). This study identified the potential of sharing track between I-5 and SR 99 with the existing Central Link system, but the concept was not evaluated in detail. The findings of this study were summarized in the issue paper S.5: Rail Between Burien and Renton. Seattle Monorail Project In the early 2000 s, the City of Seattle voters approved the development of a monorail transit system that would link various parts of the City, including West Seattle to Ballard via Downtown Seattle. The subsequent feasibility studies found that the elevation changes between Delridge Way, the West Seattle Freeway, and the South of Downtown (SODO) area presented challenges for the monorail vehicles. To address the grade issue, alignments included following the West Seattle Freeway, SW Avalon Way, SW Alaska Street, and then continuing south on California Avenue SW and terminating near SW Morgan Street (VIA Architecture, 2004). Potential station areas included Delridge, Avalon, Alaska, and Morgan Junction. 9
3- Corridor Characteristics The following sections highlight the key characteristics that create opportunities and constraints for HCT within the corridor, and are summarized in Table 3-1. The characteristics can be sorted into the following general categories: Land Use/Demographics Travel and Transit Markets Transportation System Environmental and Physical Factors Additional details are provided in the South King County Baseline Corridor Report. 3.1 Overview From a broad perspective, the corridor is characterized by strong transit markets fueled by supportive demographics, the presence of regional and local urban centers, and focus towards Downtown Seattle. The corridor has several connecting points to existing HCT light rail, commuter rail, and express bus services. Contributing to the mature transit market is a largely built-out land use pattern, although substantial population and employment growth is expected within the designated centers and urban villages of Downtown Seattle, West Seattle, Burien, SeaTac, Tukwila, and Renton. The established land uses also provide constraints for future HCT, since most potential HCT alignments would affect established neighborhoods and transportation systems. The presence of river crossings and challenging topography, particularly approaching West Seattle from Downtown Seattle, present design challenges for HCT. Downtown Seattle poses unique HCT constraints due to the already heavily used street system, dense land use patterns, topography, and complex underground infrastructure. 10
Land Use/Demographics Opportunities Regionally and locally defined centers Good market strength Supportive zoning and planned growth High population densities in portions of corridor, primarily Seattle and regional growth centers High percentage of transit-dependent populations Travel and Transit Markets Major regional destinations in (regional shopping, stadiums, Airport, Downtown Seattle) Strong existing transit markets, particularly to/from Downtown Seattle Strong transit market east-west between Burien and Renton to make connections to regional transit services Table 3-1. Opportunities and Constraints Constraints High right-of-way costs Neighborhood/context sensitivity issues No continuous vacant right-of-way corridor between Downtown Seattle-West Seattle- Burien Large areas of single family homes Southern portion of corridor has dispersed travel markets Lower transit market between West Seattle and Burien as compared to Burien and Downtown Seattle High concentration of employment in Downtown Seattle and at Sea-Tac Airport Transportation System Good connections to existing regional transit facilities (Regional Express Bus, Sounder, Link) Strong existing transit service can act as feeder system for HCT Available capacity on some local streets (e.g., West Seattle to Burien) High congestion levels on regional roadways makes HCT travel times competitive Good pedestrian facilities in most centers Existing park-and-ride lots are well utilized Environmental and Physical Factors Limited sensitive environmental areas Few man-made barriers between West Seattle and Burien Multiple users of street system limits transit connections to and through Downtown Seattle; surface streets are already full with buses and cars. Dispersed existing bicycle network Few existing transportation connections between SODO and West Seattle High freight activity in SODO competes for roadway space Downtown Renton has traffic and circulation constraints Challenging topography in West Seattle High water table and liquefaction in the SODO district, Duwamish River valley, Green River valley, Black River valley and along the Elliott Bay shoreline Marine height clearance requirements across the Duwamish Waterway Multiple utilities/infrastructure conflicts in Downtown Seattle Constrained corridor for east-west connection between Burien and Renton due to slopes, rivers, and freeways 11
3.2 Land Use / Demographics Land Use / Demographics Highlights There are numerous growth centers in the study area that feature transit-supportive zoning. Existing land use patterns and zoning in Burien, SeaTac, Tukwila, and Renton provide good opportunities for large-scale redevelopment into transit-supportive uses. Downtown Seattle, West Seattle Junction and the Renton Landing area have the strongest real estate markets in the study area under 2012 conditions. Population and employment densities are currently highest in Downtown Seattle. West Seattle, Downtown Burien, and Renton have some concentrations of population, while the rest of the study area is lower density. Downtown Seattle and the southern portion of the study area (Burien, SeaTac, Tukwila and Renton) are forecasted to experience greater population and employment growth than the northern portion of the study area (West Seattle and Unincorporated King County). The highest counts of zero-car households are in Downtown Seattle, the Renton Regional Growth Center, the local centers in West Seattle, High Point, White Center, Top Hat, Burien and north of the Sea-Tac Airport. This section describes the land use, zoning, market strength, population and employment densities, and socioeconomic characteristics within the corridor. Land use and zoning within the corridor were analyzed to identify existing and future transit-supportive land uses such as mixed use, high density residential and those which support more dense employment centers. Market strength was analyzed to determine potential redevelopment potential, and socioeconomic characteristics can determine locations of transitdependent populations. Land Use and Zoning The central Puget Sound regional land use and growth policies are defined by the PSRC. Regional Growth Centers (RGCs) and Manufacturing Industrial Centers (MICs) are identified as the primary location for housing, employment, and industrial growth in the region. Some cities and counties also identify local growth centers. Collectively, the local and regional growth centers are referred to as centers in this document. The corridor contains 14 centers, which could potentially be connected with HCT. Figure 3-1 shows the locations of these centers within the corridor study area. 12
Figure 3-1. PSRC and Local Centers 13
Transit-Oriented Development Market Strength Real estate transaction data for the last three years were evaluated to determine which portions of the corridor have the greatest market strength. Market strength is a way to estimate the probability of redevelopment in the near-to-midterm, primarily through transit-oriented development. Areas that have many active sales, and where land values are relatively high, are markets most likely to have redevelopment activity. Market strength is an important consideration for transit in two ways: Areas with ongoing redevelopment (particularly for mixed-use development) represent areas that could experience healthy transit demand soon after transit is built. However, these areas have high land values, which can increase right-of-way acquisition costs. Areas with low market strength but with favorable zoning may be areas where transit can catalyze redevelopment. In developing a market strength index, single family, multifamily, and commercial real estate transactions were considered. The results, which combine all three market segments, are shown in Figure 3-2. Key findings include: Downtown Seattle, West Seattle Junction and the Renton Landing area have the strongest real estate markets in the corridor under 2012 conditions. The multifamily real estate market is strongest in Downtown Seattle, Alki, and West Seattle Junction. While there have been transactions in Unincorporated King County, Burien, SeaTac, and Tukwila for multifamily and commercial properties, land values are below construction costs, indicating that redevelopment is unlikely in the near-term. Single family housing prices declined throughout the corridor from the pre-recession peaks, with the largest decreases in Unincorporated King County, Burien, and SeaTac. Population and Employment Data from the PSRC were reviewed to evaluate existing population and employment (based on 2010 conditions) and growth trends based on 2035 Land Use Targets forecasts. Population and employment densities are currently highest in Downtown Seattle. West Seattle, Downtown Burien, and Renton have some concentrations of population, while the rest of the corridor is a lower density than the regional average The areas that will experience the greatest change in population density are generally aligned with the regional and local urban centers. Downtown Seattle and the southern portion of the corridor (Burien, SeaTac, Tukwila and Renton) are forecast to experience greater population and employment growth than the northern corridor (West Seattle and Unincorporated King County). 14
Figure 3-2. Transit-Oriented Development Market Strength 15
Socioeconomic Characteristic Based on household travel surveys and transit rider surveys, all-day and non-downtown area transit ridership is typically higher for the following populations, all else equal: (1) household members with less access to vehicles are more likely to ride transit, and (2) lower income household members tend to be more transit dependent. Transit ridership for commuting purposes to downtown areas is typically independent from socioeconomic characteristics. Socioeconomic characteristics such as minority population, median household income levels, proportion of the households below the poverty line, and proportion of households that do not have access to a vehicle were collected using 2011 5-Year American Community Survey block group data throughout the corridor. The relative concentrations of combined socioeconomic characteristics described below are shown in Figure 3-3. High concentrations defined in the map are based on areas where three or four of the following characteristics are found. Medium concentrations are where two of these characteristics are found. Average household income below $30,000 Proportion of households without access to a vehicle is greater than 30 percent Percent minority population is greater than 50 percent Percent of households below the poverty line is more than 30 percent 2 The following are key demographic characteristics of the corridor: The majority of the corridor has a minority population percentage greater than that of King County (30 percent or more). Substantial concentrations of minority populations (above 70 percent) occur at High Point in West Seattle, and parts of White Center, in unincorporated King County. The percentage of the population below poverty level is greatest at High Point, near White Center, and in parts of Burien. The highest counts of zero-car households are in Downtown Seattle, the Renton Regional Growth Center, the local centers of West Seattle Junction, Morgan Junction, High Point, Westwood- Highland Park, White Center, Top Hat, the Burien Regional Growth Center, and north of Sea-Tac Airport. 2 Poverty in the past 12 months as used in the American Community Survey is defined by the U.S. Census Bureau as follows: "The Census Bureau uses a set of dollar value thresholds that vary by family size and composition to determine who is in poverty. Further, poverty thresholds for people living alone or with nonrelatives (unrelated individuals) and two-person families vary by age (under 65 years or 65 years and older). If a family s total income is less than the dollar value of the appropriate threshold, then that family and every individual in it are considered to be in poverty. 16