DOCUMENT REVIEW AND SYNTHESIS. Technical Memorandum #1. Washington State Transportation Commission. Cambridge Systematics, Inc.

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1 DOCUMENT REVIEW AND SYNTHESIS Technical Memorandum #1 Prepared for Washington State Transportation Commission Prepared by Cambridge Systematics, Inc. January 27, 2014

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3 Table of Contents Executive Summary Statewide Policy and Planning Priorities Washington State Strategic Highway Safety Plan, Washington State Energy Strategy Climate Impacts Vulnerability Assessment Washington State Freight Mobility Plan Interim Reports Washington State Freight Advisory Committee Freight Trends and Policies Washington State Rail Plan Preliminary Findings Washington State Summary of Public Transportation Ferry Research Initiative Evaluation of State-Level Transportation Plans Statewide Project Need and Funding Studies Connecting Washington Task Force Washington State Road Usage Charge Assessment Regional Policy and Planning Priorities Regional Transportation Priority Projects Report RTPO Planning Studies MPO Planning Studies Tribal Policy and Planning Priorities Business and Industry Priorities Advocacy Groups Cambridge Systematics, Inc. i

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5 List of Tables Table ES.1 Recent Transportation Planning and Policy Documents... ES-4 Table 1.1 Energy Focus Areas and Strategies Table 3.1 Top Regional Priorities by RTPO (from Leading the Way, 2012)Error! Bookmark not defined. Cambridge Systematics, Inc. iii

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7 List of Figures Figure 1.1 State Traffic Fatality Trends Figure 1.2 Safety Policy Impacts on Fatality Rates Figure 1.3 Projected Sea Level Rise Along Washington Coast Figure 1.4 Total Statewide Public Transportation Ridership by Mode Cambridge Systematics, Inc. v

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9 EXECUTIVE SUMMARY This technical memorandum summarizes a review of selected statewide, regional, and local transportation planning and policy documents that have become available since the Washington Transportation Plan (WTP) 2030 was approved in The review identifies the transportationrelated priorities of state and regional public agencies, Tribal organizations, and business advocacy groups as revealed through published documents. Its purpose is to provide the WTP 2035 update process with information about changes in priority and emerging trends since the last update. The following key themes emerged during the review: Statewide planning priorities include preservation and maintenance, sustainable funding, safety, and protecting the State s transportation system against the effects of climate change. The Washington State Department of Transportation (WSDOT) currently is conducting a number of modal system plan updates. Several interim components of these plans already are available and helped inform this report; others are expected to be completed in 2014 and their findings will be integrated in the Phase I WTP 2035 update as appropriate. Still others of these modal plan updates may be completed later than 2014 and will need to be considered during development of the Phase II WTP in Preservation and Maintenance. Recent state documents such as Leading the Way, Regional Transportation Priority Projects, and Connecting Washington continue to report that both regular maintenance and long-term preservation of highways, bridges, and other infrastructure, including public transit vehicles and ferries, remain top priorities. Significant investments are needed to keep the overall system in a state of good repair, and identifying adequate funding to make these investments remains a challenge. Safety. Highway-related fatalities and fatality rates declined in Washington between 2010 and The near-term future trend is less clear, as economic recovery and reduced motor fuel prices may lead to increased automobile vehicle miles of travel (VMT) with corresponding increase in the number of fatalities and serious injuries. While Washington has made significant progress in recent years to improve transportation system safety, the Strategic Highway Safety Plan Target Zero 2013 Update calls for more coordination and collaboration with partners to continue progress towards the State s aspirational goal of zero deaths on the State s transportation system. Emerging concerns include the increasing conflict between motor vehicles and the growing number of pedestrians and cyclists sharing the roadway. Energy and Environment. Energy conservation, reducing emissions, and protecting the State s transportation system against the effects of climate change are all considerations of growing importance at the State level. The Washington State Energy Policy outlines near-term and long-term strategies for reducing transportation s contribution to Cambridge Systematics, Inc. ES-1

10 greenhouse gas emissions and improving energy efficiency for all key passenger and freight transportation modes. The Climate Change Vulnerability Assessment represents the first step towards achieving the State s strategic goal of identifying strategies to reduce the risk from the effects of climate change on transportation infrastructure. Integrating climate vulnerability assessments into future planning, investment decisions and operations is an emerging priority. Freight Mobility. Supporting the broader goals of economic growth and environmental preservation through strategic investment in freight transportation infrastructure is at the core of WSDOT s Freight Mobility Plan, currently in development. Highway capacity for goods movement is essentially stagnant. Freight shipments by rail are expected to double between 2010 and 2035, raising the issues of future system reliability and safety. Goods movement is increasingly recognized as critical to the State s economic wellbeing, but the desire to maximize freight mobility must be balanced with other sometimes competing goals of environment, public health and safety. Meanwhile, expansion of the Panama Canal to accommodate larger vessels raises a different set of questions about the future competitiveness of Washington s marine ports in certain trade markets. Public Transportation. Recent statistics suggest that most of the net increase in public transportation ridership from 2009 to 2012 has come via investment in light rail transit (LRT) and streetcars, in those few areas that have such modes, and not in fixed route bus transit. Declining revenue for capital-intensive modes such as LRT raises questions about the sustainability of this trend. Traditional urban bus transit systems will continue to require significant capital reinvestment and operating subsidy to remain competitive with other modes. More aggressive operational and transportation pricing may also be important components of a comprehensive urban transportation strategy. Regional priorities. Several state-level summaries and synopses were consulted to obtain a high-level view of regional priorities; additional discovery of regional trends and priorities will take place through the WTP 2035 stakeholder engagement and public outreach components. WSTC s Regional Transportation Priority Projects report summarizes priorities as reported by most of the State; MPOs and RTPOs. System preservation and maintenance was the most commonly cited top priority among the State s RTPOs, followed by freight mobility/economic development, safety, and alternative transportation choices. Preservation and Maintenance. Echoing the state-level concerns, regions and cities are increasingly concerned with the cost of simply maintaining and preserving their existing infrastructure. Sustainable funding sources are needed, such as a dedicated source established at the state level and directed to local preservation needs. At the same time, there is a growing call for local matches not solely to leverage state funding but also to improve accountability and adherence to local project performance expectations. ES-2 Cambridge Systematics, Inc.

11 Public Transportation. The 2013 WSDOT State Summary of Public Transportation suggests that most of the net increase in public transportation ridership from 2009 to 2012 has resulted from investment in light rail transit (LRT) and streetcars, and not in fixed route bus transit. Declining revenue for capital-intensive modes such as LRT raises questions about the sustainability of this trend. Traditional urban bus transit systems will continue to require significant capital reinvestment and operating subsidy to remain competitive. More aggressive operational and transportation pricing strategies may be necessary components of a comprehensive urban transportation program. Other Regional Priorities. As would be expected, there are as many differences as similarities between different regions of the state, with resulting variation in priorities. Rural areas cite the critical importance of programs that provide connectivity to the rest of the state, such as all weather roads, rural transit, and passenger air service. Ferry service is of course a lifeline to several sub-regions of the larger Puget Sound basin. Trade and tourism are disproportionately important to the local economy in some areas. Tribal priorities. The 2012 Washington Tribal-State Conference identified a number of priorities for Tribal-state cooperation to achieve better outcomes. Several of the priorities have to do with improved coordination around various funding and grant programs. Transportation safety and public transit are two specific areas where improvement in the amount of available funding and the efficiency of expenditure of those funds will help to better address Tribal transportation needs and improve outcomes. Business priorities. Business and industry groups such as the Association of Washington Business and state and regional Chambers of Commerce, seek improved efficiency in expenditure of existing funding and greater accountability for results through performance measurement approaches. There is a preference for prioritizing investments in system preservation /maintenance and goods movement infrastructure. Direct user charges, such as tolling, and local option taxes that increase the nexus between expenditure and benefits, are preferred over broad statewide tax increases to fund future investment needs. Funding Needs. A recurrent theme in recent documents is the existence of a significant current and projected future funding gap at all levels in the State. Calls for improved accountability for expenditure of existing public funds notwithstanding, there is fairly broad consensus on the need for larger and more sustainable funding, particularly for maintenance and long-term preservation needs. Several recent needs assessments have identified priority projects and funding gaps to better understand needs and preferences for various potential revenue sources. A wide variety of funding proposals have surfaced recommending a range of statewide and local taxes and fees, as well as direct and indirect user charges. Table ES.1 lists the recent transportation planning and policy documents reviewed in this technical memorandum, and the key actions and recommendations from each. Cambridge Systematics, Inc. ES-3

12 Table ES.1 Recent Transportation Planning and Policy Documents No. Document Title Lead Agency Date Document Summary 1. Statewide Policy and Planning Priorities 1.1 Strategic Highway Safety Plan Target Zero 2013 Update WSDOT August 2013 (Draft) The Washington State Strategic Highway Safety Plan 2013: Target Zero is a practitioners plan to continue progress towards the aspirational goal of zero deaths and serious injuries in 2030 on the State s transportation system. Progress towards this goal will require leveraging innovation and research in traffic safety and effective work with committed partners. Since the 2007 revision, Washington has experienced many positive traffic safety-related trends with the strengthening of DUI laws, increased enforcement of impaired driving, improved automotive safety equipment, roadway/engineering improvements, and antitexting and cell use laws. Fatalities have fallen in the following areas: younger drivers age 15 to 25 years old; vehicle passengers not wearing appropriate safety restraints; head-on collisions. Although the State has experienced significant positive trends in the area of safety, fatalities and serious injuries of pedestrian and motorcyclists are on the rise and require action. 1.2 Washington State Energy Strategy Department of Commerce December 2011 Washington State s Energy Strategy promotes market-based policies that rely on well-informed consumer choice and emphasizes a more efficient and coordinated system of transportation to improve the use of energy to move people and goods. The strategy encourages policies that promote: More efficient vehicles; More efficient travel; and Better-priced automobile trips so that when making travel choices drivers consider external costs (e.g., environmental, system maintenance). 1.3 Climate Impacts Vulnerability Assessment WSDOT November 2011 The Climate Impacts Vulnerability Assessment tests the conceptual climate risk assessment model developed for transportation infrastructure. It captures qualitative ratings for impacts and asset criticality and recorded descriptions. These qualitative ratings were used to map projected climate impacts. This assessment s results represent the first step toward meeting the following strategic goal: Identify WSDOT facilities vulnerable to the effects of climate change; evaluate risks; and identify possible strategies to reduce risk. 1.4 Washington State Freight Mobility Plan Interim Deliverables WSDOT Currently in the process of developing its Freight Mobility Plan, the Washington State Department of Transportation has developed the following interim deliverables to inform the final plan 1) Washington State Freight Mobility Plan Task 2: Interim Data Report, which updates the freight network description and statistics found in the 2008 WTPO Freight Report (June 2012); 2) Washington State Freight and Goods Transportation System: 2011 Update (2011); 3) Summary of freight trends identified in customer interviews for the Washington State Freight Plan (May 2013); ES-4 Cambridge Systematics, Inc.

13 No. Document Title Lead Agency Date Document Summary 1.5 Freight Advisory Committee Freight Trends and Policies Report (Draft) Freight Mobility Strategic Investment Board January 2014 The Freight Advisory Committee (FAC) recently released a draft discussion document, Freight Trends and Policies, reporting on all relevant freight modes in the State. In addition to noting specific needs of each of the modal systems, the FAC report identifies structural challenges to sustainable, long term funding to ensure freight mobility and economic competitiveness, and points to the need for a more strategic overall public policy approach to investment in the freight system. 1.6 Washington State Rail Plan Public Review Draft WSDOT September 2013 The Washington State Rail Plan that fulfills Federal and state requirements and serves as a strategic blueprint for investing in rail infrastructure, including near-term (5-year) and long-term (20-year) funding strategies. The final State Rail Plan is expected in 2014, but a Public Review Draft was made available in late Washington State Summary of Public Transportation Summary of Statewide Statistics WSDOT December 2013 The Summary of Public Transportation is a yearly report that summarizes the status of public transportation in Washington, providing data to transit providers, legislative transportation committees, and local and regional governments. Statewide statistics show ridership growing over the past three years, particularly on light rail transit. Meanwhile, capital revenues for transit services have declined by 12 percent from 2009 to Ferry Research Initiative WSTC 2010 The ferry customer survey was conducted to inform efforts to improve the system so that it better meets its users needs. The survey included the following ferry uses: recreational use, walk-on customer use, vehicle customer use, freight and goods movement demand, and reactions to potential operational strategies and pricing policies. The 2010 Ferry Survey included the following surveys: winter customer survey, summer customer survey, freight survey, general market assessment, mode shift and elasticity of demand survey, capital funding, various quick poll surveys, and a fare strategy survey. 1.9 Evaluation of State- Level Transportation Plans Washington State Legislature Joint Transportation Committee January 2011 The Evaluation of State-Level Transportation Plans documents the work done in response to the 2010 Legislature s directive to the Joint Transportation Committee (JTC) to evaluate state-level transportation plans and present recommendations for improving their efficiency and utility. The evaluation found that Washington state requirements were more extensive than Federal requirements, more complex compared to other states, that state plans were not as streamlined as they could be (different schedules, no process for synchronizing with MPO/RTPO plans, etc.), and that increased performance-based focus of Federal agencies should be planned for. It recommended: 1) Limiting state statutory requirements beyond the statewide LRTP; 2) Integrating performance measurement and attainment reporting and accountability into statewide planning; and 3) Streamlining budgets to integrating with LRTP performance goals, leverage Federal and state matching funds, and periodic evaluation of funded plans to ensure they are on schedule and within budgets. Cambridge Systematics, Inc. ES-5

14 2. Statewide Project Need and Funding Studies 2.1 Leading the Way, 2012 Annual Report 2.2 Connecting Washington 2.3 Washington State Road Usage Charge Assessment WSTC January 2013 Leading the Way provides WSTC s recommendations regarding transportation system funding and planning and it summarizes accomplishments related to Washington s transportation system during In addition, it outlines regional priorities, including specific projects and broader goals. Governor s Office January 2012 In July 2011, Governor Chris Gregoire convened the Connecting Washington Task Force to evaluate transportation system need and create a 10-year strategy to maintain and improve the system. The Task Force identified recommendations for the State to expand the funding options that can be enacted at the local level to support the transportation system; begin planning for a transition to more sustainable funding sources for transportation; and revise the project prioritization process to better ensure accountability. WSTC, WSDOT January 2013 In 2012, the Washington State Legislature direct the WSTC and WSDOT to work with a Steering Committee to examine the feasibility of transitioning to a road usage charge to develop a sustainable, long-term revenue source for the State s transportation system to transition from the current gas tax system. The Committee found that road usage charge is feasible in Washington. In 2013, the Legislature provided additional funding to explore policy issues, evaluate the business case, and lay out a path to potential implementation. 3. Regional Policy and Planning Priorities 3.1 Regional Transportation Priority Projects 3.2 Leading the Way, 2012 Annual Report: RTPO Planning Studies WSTC January 2011 This report documents Washington s assessment of funding needs for new projects and road and bridge preservation. Findings from this assessment, which include the following: Funding needs across the state exceed available revenues; New state funding distributed to regional and/or local jurisdictions should go towards system preservation first; and The State should establish a dedicated funding source and program for road and bridge preservation that requires a local match and specific performance/project delivery expectations. WSTC January 2013 Leading the Way summarizes regional priorities, including specific projects and broader goals, for each of the State s RTPOs and San Juan Islands. 3.3 MPO Planning studies MPOs A wide range of planning studies were conducted at the MPO level, including Regional/ Metropolitan Transportation Plans, strategic plans, corridor studies, and other notable studies. These are listed in Section 3.3 of the report. 4. Tribal Policy and Planning 4.0 Tribal Transportation Planning TTPO Ongoing Established in 2003, the TTPO supports the development of Tribal transportation planning capacity, including research and data collection efforts. Minutes of its periodic meetings are ES-6 Cambridge Systematics, Inc.

15 Organization (TTPO) available on the WSDOT website. 4.0 Tribal Transportation Data Project Washington Tribal-State Transportation Conference Report 5. Business and Industry Priorities 5.0 Legislative Objectives AWB, WCC, regional chambers of commerce 6. Advocacy Group Priorities TTPO Ongoing Initiated in 2005, the Tribal Transportation Database Project is intended to document the transportation needs and road systems of state Tribal governments. WSDOT 2012 WSDOT and the Kalispel Tribe cohosted the 2012 Tribal/State Transportation Conference, which drew 185 participants, representing 20 tribes and 8 state and Federal agencies. During the conference, the Kalispel Tribe and WSDOT Eastern Region shared information about their programs, priorities, and successful examples of partnering; a panel discussion on state and Federal funding outlooks and priorities; and break-out sessions on the following transportation priority areas: planning, safety, transit, cultural resources and workforce development Policy statements and legislative agendas from business and industry groups included: Improve efficiency, accountability, and monitoring of programs; Invest in system preservation and goods movement first; and Use tolling or local option taxes, not statewide taxes, to fund transportation. 6.0 Various Various A list of state-recognized transportation advocacy groups can be found at wa_orgsubjects.aspx#transportation. Cambridge Systematics, Inc. ES-7

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17 1.0 STATEWIDE POLICY AND PLANNING PRIORITIES This section outlines recent statewide policy and planning priorities based on a review of current state modal plans and other reports on system safety, energy efficiency, environmental protection, climate change, and freight mobility. The following documents are reviewed in this section: Washington State Strategic Highway Safety Plan, 2013 Update; Washington State Energy Strategy, 2012; Climate Impacts Vulnerability Assessment, 2011; Washington State Freight Mobility Plan interim reports; Washington State Freight Advisory Committee Freight Trends and Policies, 2014; Washington State Rail Plan preliminary findings; Washington State Summary of Public Transportation, 2013; Ferry Research Initiative, 2010; and Evaluation of State-Level Transportation Plans. Many of the State s modal transportation plans were last updated in 2009, prior to development of WTP However, WSDOT currently is conducting updates to a number of modal plans, and the following plans are expected to be substantially completed in 2014, and will be available to inform and expand the Phase II WTP 2035, to be developed in 2015: Highway System Plan; Ferries Division Long-Range Plan; Freight Mobility Plan; State Rail Plan; Bicycle Facilities and Pedestrian Walkways Plan; Statewide Public Transportation Plan; and Aviation System Plan. Cambridge Systematics, Inc. 1-1

18 1.1 Washington State Strategic Highway Safety Plan, 2013 The Washington State Strategic Highway Safety Plan 2013 sets statewide priorities for safety, provides a resource for safety strategies, and a performance monitoring framework, all intended to continue progress towards the aspirational goal of zero deaths and serious injuries on the State s transportation system by The plan found that: State and national fatality rates are declining. The National Highway Traffic Safety Administration (NHTSA) reports that 29,757 people died in national vehicle crashes in 2011, down 2 percent from At the state level, fatalities are down 1.3 percent from 2010 to 2011, with preliminary figures for 2012 showing another 3.8 percent decline in fatalities (see Figure 1.1). In 2010, Washington had the fourth lowest traffic fatality rate in the nation, an improvement from eleventh lowest in State policy has been instrumental in reducing traffic fatality rates over time (See Figure 1.2). In recent years, Washington has had particular success in reducing fatalities among young drivers, unrestrained vehicle occupants, and head-on collisions. Other types of fatalities require more state attention. Fatalities and serious injuries involving pedestrians and motorcyclists have risen in recent years. Impaired driving, running off the road, and speeding are the most critical factors contributing to fatalities and injury accidents on Washington roadways. 1-2 Cambridge Systematics, Inc.

19 Figure 1.1 State Traffic Fatality Trends Source: Washington State Strategic Highway Safety Plan: 2013 Update. Cambridge Systematics, Inc. 1-3

20 Figure 1.2 Safety Policy Impacts on Fatality Rates Source: Washington State Strategic Highway Safety Plan: 2013 Update Washington State Energy Strategy The 2012 Washington State Energy Strategy established goals of clean job growth, competitive energy prices and reduced GHG emissions, reflecting the State s commitment to energy efficiency, sustainability, and innovation. The document outlines several near- and long-term transportation-related strategies in three focus areas: vehicles and fuels, travel efficiency, and pricing (see Table 1.1). 1-4 Cambridge Systematics, Inc.

21 Table 1.1 Energy Focus Areas and Strategies Vehicles and Fuels Travel Efficiency Pricing Near-Term Electric Vehicle Support Expand and support electric vehicle infrastructure. Renewable Fuel Standard Require 5 percent biodiesel in fuels. Diesel engine efficiency improvements Promote diesel technologies while leading with improvements to the State s ferry fleet. Long-Term Commute Trip Reduction program expansion Renew funding for the Growth and Transportation Efficiency Center subprogram. Smart growth and planning Cooperate with local governments to promote high-efficiency travel through compact development. Systems management Expand application of transportation systems management efforts. Regional Mobility Grants Assess the project type most likely to benefit from new regional mobility grants. Electric Vehicle Mileage Pricing Pilot Design and deploy a mileage pricing program for electric vehicles. Car sharing and mileage-based insurance Enable mechanisms that more strongly connect travel cost to distance. Revenue neutral feebate. Comprehensive trip reduction program. Emerging pricing methods. Low-carbon fuel standard. Energy efficient transportation choices. Carbon pricing. Advanced aviation fuels. Improvements to railroads. Source: 2012 Washington State Energy Strategy. 1.3 Climate Impacts Vulnerability Assessment For the 2011 Climate Impacts Vulnerability Assessment, WSDOT collected an inventory of climate change data using GIS, and used FHWA methodologies to identify WSDOT facilities vulnerable to the effects of climate change, evaluate risks, and identify possible strategies to reduce risk. WSDOT also held workshops across the State and qualitatively assessed vulnerability based on participant input. The assessment produced the following findings: In general, climate change will exacerbate existing conditions such as unstable slopes, flooding, and coastal erosion; Most of Washington s newer bridges are resistant to climate change impacts, some up to four feet of sea level rise, though road approaches to bridges are often more vulnerable than the bridges themselves; Cambridge Systematics, Inc. 1-5

22 The areas where impacts are anticipated already are experiencing problems or are on watch lists, such as scour-critical bridges or chronic environmental deficiency sites; and Many high-impact ratings are in the mountains, along rivers, and in low-lying areas subject to flooding or inundation due to sea level rise (See Figure 1-3). Figure 1.3 Projected Sea Level Rise Along Washington Coast Source: 2011 WSDOT Climate Impacts Vulnerability Assessment. 1-6 Cambridge Systematics, Inc.

23 The assessment proposed incorporating the climate change vulnerability assessment into investment decisions, developing a strategic plan to address long-term needs of key routes, and integrating climate change projections into planning, design, and operational programming. 1.4 Washington State Freight Mobility Plan Interim Reports WSDOT currently is developing the Freight Mobility Plan, which is intended to prioritize freight transportation system improvement strategies to facilitate efficient goods movement services, support economic growth, and advance the State s environmental preservation goals; provide performance metrics to help compete for Federal freight funds; and to integrate existing state plans into a single multimodal state freight plan that addresses all modes. Three interim reports were reviewed as part of this analysis: Washington State Freight Mobility Plan Task 2: Interim Data Report; Washington State Freight Goods Transportation System 2011 Update; and Summary of Freight Trends Identified in Customer Interviews (May 2013). The reports suggest the following: Goods movement is a critical component of Washington s economy. More than 95 percent of U.S. cargo imports arrive by ship, and West Coast ports (including Seattle/ Tacoma) accounted for 75 percent of Asian imports. The freight system also is critical to ensuring Washington businesses and farmers can get their products to market. As the Panama Canal expansion project draws to completion in 2014, efficient intermodal movement of imports from the ports of Washington will become ever more vital to maintaining Washington s competiveness. Goods movement capacity of the highway system is stagnant. The miles of statedesignated freight roadways have remained constant over the last decade while truck volumes on state highways have risen substantially, suggesting that the available capacity for goods movement growth could be a growing concern. Better data is needed to address freight issues. More comprehensive truck classification counts across the State would help produce more meaningful analysis of goods movement in the future. Developing a more accurate and systematic statewide freight data system requires more collaboration between cities, counties, and the State. 1.5 Washington State Freight Advisory Committee Freight Trends and Policies The Washington State Freight Mobility Strategic Investment Board (FMSIB) is responsible for creating the Washington State Freight Advisory Committee (as directed by Section 1117 in MAP- Cambridge Systematics, Inc. 1-7

24 21) representing a cross-section of public and private sector freight stakeholders, including ports, shippers, carriers, freight-related associations, the freight industry workforce, and transportation departments of the state and local governments. The role of the Freight Advisory Committee includes confirmation and validation of deliverables of the Freight Mobility Plan that WSDOT is developing. The Freight Advisory Committee recently released a draft discussion document, Freight Trends and Policies, reporting on all relevant freight modes in the State. Among the findings of that report are the following: Highway. Truck freight tonnage is increasing as the economy recovers. Washington State s projected future population increase will put pressure on existing transportation facilities that are critical to freight mobility. Puget Sound area retail, wholesale and manufacturing companies rely heavily on trucks and are particularly impacted by congestion and road conditions. Marine. Washington s large container ports are losing market share to British Columbia, Southern California, and other regions; these ports have excess terminal capacity. Meanwhile, shipment of bulk freight on the Columbia Snake River System (CSRS) is growing, and there are significant inland waterways investment needs Air. Air Cargo is an important component of Washington s overall freight profile. Growth in air freight is fueled by Asian demand for agricultural products from Eastern Washington, and future investments, private and public, are needed in air cargo facilities and infrastructure to support growth in air freight. Cross-Border. Routing, queuing, and other changes have improved the flow of freight across the US/Canadian border, but international gateways still need attention to further facilitate goods movement and reduce the impact of freight shipments on other modes of transportation. Funding. As with the passenger transportation system, stable funding is necessary to address strategic freight infrastructure needs. Similar to the Highway Trust Fund, there are problems with freight-oriented trust funds for harbors and inland waterways, and cities and counties have inadequate revenue sources to keep up with need for investments in freight mobility. Strategic Investment. There is a need to protect the economic interests of the entire state, which requires more attention to protection of strategic freight corridors, industrial lands and port districts. As public transportation policy is developed and refined, benefits and impacts to freight mobility need to be included in analysis. More comprehensive policies and investment strategies for freight are needed to allocate funding in an efficient and equitable way. 1-8 Cambridge Systematics, Inc.

25 1.6 Washington State Rail Plan Preliminary Findings The Washington State Rail Plan that fulfills Federal and state requirements and serves as a strategic blueprint for investing in rail infrastructure, including near-term (5-year) and long-term (20-year) funding strategies. The final State Rail Plan is expected in 2014, but preliminary findings from the Public Review Draft (September 2013) suggest the following: Goods movement growth. Freight rail volumes are expected to more than double (from 116 million tons in 2010 to 268 million annual tons in 2035), amounting to a 3.4 percent increase annually. Key trends that could affect rail freight movements include a forecasted increase in worldwide demand for dry bulk commodities, including potash, ore, and other dry bulk cargo demand; fluctuating fuel costs; and global supply chain changes. Passenger rail growth. Ridership on the Amtrak Cascades system is expected to grow significantly over the coming decades. Challenges. To meet forecasted demand, the state rail system will need to enhance the efficiency and reliability of existing services while making targeted investments to overcome limited capacity and bottlenecks, ensure system preservation and maintenance, and guarantee a high level of system safety. Actions. The State Rail Plan will outline a series of recommended actions, including performance evaluation and monitoring to improve efficiency, and seeking innovative funding sources and programs to address system challenges. 1.7 Washington State Summary of Public Transportation This annual WSDOT report summarizes public transportation performance across the State. The December 2013 edition of the data reports that: Overall, demand for transit services across the State has risen by millions of passengers since 2009, fueled largely by gains in light rail travel: Fixed-Route Services (bus, bus rapid transit, commuter bus, and trolleybus) Passenger trips were roughly million in 2012, more or less identical to Light Rail and Streetcar Ridership has increased dramatically, from 3.8 million trips in 2009 to 10.5 million in 2012 (an increase of 173 percent). Commuter Rail Passenger trips have increased from 2.5 million in million in 2012 (an increase of 12 percent) Cambridge Systematics, Inc. 1-9

26 Annual operating revenues for transit services have increased by 11.1 percent from 2009, but total capital revenues for transit services in the State have decreased by 12.2 percent over the same period. Figure 1.4 Total Statewide Public Transportation Ridership by Mode ,000, ,000, ,000, ,000, ,000, ,000, ,000, ,000, Fixed-Route Services Commuter Rail Light Rail and Streetcar Source: Washington State Summary of Public Transportation, December Ferry Research Initiative The WSTC conducted the ferry customer survey to better understand its users and to optimize service improvements, fares, and new investments to maximize ridership and revenue. The 2010 Ferry Survey polled a wide variety of ferry users and time periods. Key findings from the survey included: Riders support higher fare box recovery but are split on fuel surcharges. Nearly two-thirds of ferry riders support increasing the fare box recovery amount to help fund capital needs. One-third of riders support adopting the proposed fuel surcharge, and another one-third of riders are very against the surcharge. Peak drive-on riders are price inelastic. If fares are increased up to 25 percent, peak drive-on riders travel habits would be more impacted by an additional one or two ferry boat wait, which would encourage walking on peak ferries or driving on off-peak Cambridge Systematics, Inc.

27 Off-peak discount for freight. Freight customers would shift 25 percent of freight trips given a 50 percent fare discount between 9 p.m. and 5 a.m. Tailor fares to routes or travelsheds. Ferry fares should be tailored to route or sheds rather than implemented systemwide, because the portion of commute trips varies significantly by route. Attitudes towards tariff charges. Over half of Puget Sound basin citizens think that WSF s daily operating expenses should be funded through a mix of ferry fares and statewide taxes; whereas, one-third reported that ferry fares alone should fund costs. 1.9 Evaluation of State-Level Transportation Plans The 2011 Evaluation of State-Level Transportation Plans was conducted by the Washington State Legislature Joint Transportation Committee (JTC) to develop recommendations that would guide the State toward more efficient transportation planning process. The report found: State requirements are complex. Washington State requirements for planning were greater and more complex compared to other states, and recommended limiting statutory requirements for planning to the statewide long-range transportation plan. A need for greater integration of state/regional/local planning. Addressing critical transportation issues requires greater cooperation and integration between state, regional, and metropolitan transportation planning entities. A need for performance measurement and monitoring to better leverage Federal matching funds. Performance and monitoring results should be readily accessible to the public to ensure transparency. These performance measures should be established in the state long-range transportation plan. Cambridge Systematics, Inc. 1-11

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29 2.0 STATEWIDE PROJECT NEED AND FUNDING STUDIES This section reviews two statewide policy and planning documents that evaluate existing project funding needs and recommend more sustainable, long-term funding strategies. Documents reviewed in this section include: Connecting Washington Task Force; and Washington State Road Usage Charge Assessment. 2.1 Connecting Washington Task Force In July 2011, Governor Chris Gregoire convened the Connecting Washington Task Force to evaluate transportation system need and create a 10-year strategy to maintain and improve the transportation system. The task force identified the following recommendations: Guidelines for transportation investment. Preserve existing transportation systems and services; improve mobility for people and commerce; enhance the system s safety and efficiency; make necessary improvements to help attract, maintain, and expand private businesses and a highly skilled work force. System objectives. System preservation, strategic mobility improvements, system efficiency, and safety. System preservation. Invest $21 billion in state funding over the next 10 years to preserve the transportation system and make strategic investments in the corridors that support economic growth. New funding sources. Seek more sustainable transportation funding sources. Performance monitoring. Ensure accountability by tying resource allocation and grant programs to quality standards and developing clear metrics to monitor transportation system performance. 2.2 Washington State Road Usage Charge Assessment In 2012, the Washington State Legislature direct the WSTC and WSDOT to work with a Steering Committee to examine the feasibility of transitioning to a road usage charge to develop a sustainable, long-term revenue source for the State s transportation system to transition from the current gas tax system. The Committee found that road usage charge is feasible in Cambridge Systematics, Inc. 2-1

30 Washington. In 2013, the Legislature provided additional funding to explore policy issues, evaluate the business case, and lay out a path to potential implementation. The committee recommended policies to guide potential implementation and found that a business case could be made for three potential road usage charge concepts or combinations of concepts that provide drivers a choice of approaches. The committee also developed a work plan to further explore policy issues, and to develop a concept of operations. A report was delivered to the legislature in January, Cambridge Systematics, Inc.

31 3.0 REGIONAL POLICY AND PLANNING PRIORITIES This section reviews regional policy and planning documents to summarize planning and policy priorities at the regional transportation planning organization (RTPO) and metropolitan planning organization (MPO) levels. 3.1 Regional Transportation Priority Projects Report WSTC s Regional Transportation Priority Projects report documents the findings from a review of priority projects and road and bridge preservation need. Fourteen of the State s MPOs and RTPOs responded to WSTC s request that the State s regional agencies submit up to 20 priority projects in their region and an estimate of their region s 10-year road and bridge preservation need. Priority projects could include road projects on city streets, county roads, or state highways; they could be any type of project, including but not limited to preservation, maintenance, and safety improvement; or they could be multimodal projects. RTPOs were asked not to include megaprojects that already had been identified as high priority for the State. WSTC found that transportation needs across the state vary and funding needs exceed available revenues. According to the information provided by responding MPOs, total estimated priority project need totals $22.6 billion and estimated statewide preservation need totals $6.6 billion. Based on this information, WSTC s made the following recommendations: Focus on preservation. New state funding to regional and/or local jurisdictions should be used to address preservation needs. Given the large statewide preservation need, the State should establish a dedicated funding source and program for road and bridge preservation. Performance measures and monitoring. The State should require some form of local match for all direct state appropriations to regional organizations/locals. Additionally, the State should establish performance/project delivery expectations in advance and require that regional organizations receiving funding provide annual status reports. Clarification on preservation and maintenance. The State should consider clarifying the definitions of preservation and maintenance. This effort revealed that there are differing definitions among agencies. Support local/regional organizations seeking funding. The Legislature should consider establishing policies to guide regional organizations seeking state revenues during the project prioritization process. Cambridge Systematics, Inc. 3-3

32 3.2 RTPO Planning Studies WSTC s Leading the Way 2012 Annual Report (2013) reports on the regional transportation priorities of Washington s 14 RTPOs and the San Juan Islands. As would be expected, regional priorities vary, but the most frequently cited priorities are maintaining and preserving the existing transportation system, and supporting economic development through investment in freight mobility and other means. Additional priorities among multiple RTPOs include: Sustainable, long-term funding for regional transit operations including ferries; Investments to increase trade and tourism, improve industrial competitiveness, expand allweather roads, and other economic-development oriented strategies; Sustainable revenue sources for local city and county road system improvement needs; Improved roadway safety; Freight-specific priorities such as maintaining the Columbia-Snake River shipping corridor and rehabilitating short-line railroads; Support for rural transit services (including ferry and air service) that are critical to connecting rural regions to the rest of the state; and Bicycle and pedestrian system investments including trail projects. 3.3 MPO Planning Studies A wide range of planning studies conducted at the metropolitan planning organization (MPO) level. Some of these are too specific to be of direct relevance to the WTP 2035 update, but others may provide additional useful details not obtained from the state-level summaries of regional planning activity and priorities. The following MPO studies will be further reviewed for potential usefulness in updating the WTP 2035 Policy Plan: Benton-Franklin Council of Governments (BFCG) 2012 Interim Public Transit Human Service Transportation Plan 2013 Metropolitan Area Social and Economic Data Book Regional/Metropolitan Transportation Plan Cowlitz-Wahkiakum Council of Governments (CWCOG) 2008 Woodland Transportation Infrastructure Strategic Plan (WTISP) 3-4 Cambridge Systematics, Inc.

33 2013 Regional Transportation Improvement Plan Regional/Metropolitan Transportation Plan Lewis-Clark Valley Metropolitan Planning Organization (LCVMPO) Long-Range Transportation Plan Regional/Metropolitan Transportation Plan Puget Sound Regional Council (PSRC) Transportation Action Strategy Update to the Regional Economic Strategy, Preparing Busy General Aviation Airports for Next Generation Technologies Studies completed as part of the Growing Transit Communities program Regional/Metropolitan Transportation Plan Skagit Metropolitan Planning Organization (SMPO) Skagit Regional Nonmotorized Plan Regional/Metropolitan Transportation Plan Southwest Washington Regional Transportation Council (SWRTC) Transportation System Management and Operations Study MTP Update Regional/Metropolitan Transportation Plan Spokane Regional Transportation Council (SRTC) Horizon 2040, MTP Development Congestion Management Plan Update (in progress) 2013 TIP Guidebook Updated Human Service Transportation Plan Thurston Regional Planning Council (TRPC) Creating Places Preserving Spaces: A Sustainable Development Plan Urban Corridor Communities Smart Corridors Signalization and Transit Signal Priority Corridor Study Regional/Metropolitan Transportation Plan Cambridge Systematics, Inc. 3-5

34 Walla Walla Valley Metropolitan Planning Organization (WWVMPO) (None located as of this time) Wenatchee Valley Transportation Council (WVTC) Wenatchee Valley Regional Bicycle Plan, May 2013 Okanogan County Transit Feasibility Study, May 2013 Metropolitan Area Truck Routes Study Regional/Metropolitan Transportation Plan Whatcom Council of Governments (WCOG) 2013/14 IMTC Passenger Vehicle Survey Report of Interim Findings Regional/Metropolitan Transportation Plan Yakima Valley Conference of Governments (YVCOG) East-West Corridor Interchange Justification Report Regional/Metropolitan Transportation Plan 3-6 Cambridge Systematics, Inc.

35 4.0 TRIBAL POLICY AND PLANNING PRIORITIES Washington is home to 29 Federally recognized Tribal governments, which collectively oversee over 5,000 road miles in the State. Several sources will assist the project team in synthesizing any recent changes in Tribal transportation policy and planning concerns, including: The Tribal Transportation Planning Organization. Established in 2003, the TTPO supports the development of Tribal transportation planning capacity, including research and data collection efforts. Minutes of its periodic meetings are available on the WSDOT web site. Tribal Transportation Data Project. Initiated in 2005, the Tribal Transportation Database Project is intended to document the transportation needs and road systems of state Tribal governments. Washington Tribal-State Transportation Conference. Every two years, WSDOT hosts a conference to discuss Tribal transportation issues and identify mutual priorities. The 2012 Washington Tribal-State Transportation Conference drew 185 participants, representing 20 tribes and 8 state and Federal agencies. Tribal representatives identified a list of priorities for WSDOT, including: 1 Performance measurement. Work with Tribes to identify and plan for how the MAP-21 performance measurement program will affect Tribes. Safety. Improve cooperation between Tribes, state, and Federal agencies to collect safety data and enhance coordination on safety grants available through MAP-21. Encourage Tribal participation in safety planning efforts. Transit funding. Involve Tribes in FTA consultations on the Federal Tribal transit funding formula. Achieve resolution regarding the inclusion of sovereign immunity waivers in consolidated grant contracts with Tribes. General funding. Expand the Regional Mobility Grant Program to include Tribal applicants. Continue to provide training and technical assistance on WSDOT s Public Transportation Division programs and expand the use of Rural Transit Assistance Program. 1 WSDOT, Conference Report: Washington Tribal-State Transportation Conference, Cambridge Systematics, Inc. 4-1