Application

Burke-Gilman Multimodal Connector TIGER Application i
TRANSMITTAL MEMORANDUM
Te Honorable Anthony R. Foxx
Secretary
U.S. Department of Transportation
1200 New Jersey Ave. SE
Washington, DC 20590
Re: FY 2014 TIGER Proposal – Burke-Gilman Multimodal Connector
Dear Secretary Foxx:
On behalf of the University of Washington, a Division of the State of Washington, I am pleased to transmit for your
consideration a proposal to construct the Burke-Gilman Multimodal Connector in partnership with USDOT’s TIGER
Discretionary Grants Program.
Te Burke-Gilman Multimodal Connector is uniquely positioned to support USDOT’s stated goal to create Ladders of
Opportunity through transportation investment. With Sound Transit’s University Link light rail project, WSDOT’s SR 520
Floating Bridge Replacement and HOV Project, Puget Sound Bike Share’s Seattle launch, the multiagency Montlake Triangle
transit center project all converging adjacent to the region’s preeminent university and emerging center of innovation
commerce, our region has created just such a ladder. Tis project targets that Ladder of Opportunity’s only missing rung – a
missing frst and last mile connection between transit and the educational, employment, and civic life opportunities that exist
in the University District Urban Center. With USDOT’s last-dollar-in support, we will be able to replace failing bicycle and
pedestrian connections and complete that Ladder – and unlock the full potential of the $9 billion in adjacent investment.
By partnering with the University of Washington on this project, USDOT will open previously untapped revenue streams for
transportation projects and signal to the nation’s public universities that they have a critical role to play in supporting regional
mobility and providing afordable access to opportunity. Te Burke-Gilman Multimodal Connector is an outstanding project
on its own merits, but when one considers the national signifcance of the project in the form of innovative partnerships,
funding, and design it is clear that this is a must-build project.
USDOT’s support in this round of TIGER funding is critical. Tis represents the last opportunity to replace the missing
rung on the Ladder before Link light rail opens in 2016 and the only opportunity to avoid disruption of the network with
construction once light rail service begins. With USDOT’s partnership, we can complete this Ladder of Opportunity for the 52
economically distressed census tracts in the Link light rail corridor and for the entire Central Puget Sound region.
Sincerely,
Joshua N. Kavanagh
Director of Transportation
University of Washington
ii Burke-Gilman Multimodal Connector TIGER Application
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Burke-Gilman Multimodal Connector
Location: Seattle, Washington, 43 District
Application Type: Capital
Applicant: University of Washington, a Division of the State of Washington
TIGER Funding Applied For: $14 million
Contact:
Joshua Kavanagh
3745 15th Ave NE
Seattle, WA 98195-5360
[email protected]
206-685-1587
Project Partners: Puget Sound Regional Council, Seattle City Light, Rails
to Trails Conservancy, Seattle Children’s Hospital, Seattle Department of
Transportation, King County Metro Transit
LIVE WORK PLAY LEARN CONNECT INNOVATE
iv Burke-Gilman Multimodal Connector TIGER Application
I Project Description
Overview ................................................................................................................................................. 1
Project goals ........................................................................................................................................... 1
Detailed list of improvements ............................................................................................................. 2
Regional context .................................................................................................................................... 4
Local context .......................................................................................................................................... 5
II Project Parties
Funding partners ................................................................................................................................... 6
Supporting partners ............................................................................................................................. 6
III Grant Funds & Sources
Grant funds & sources ........................................................................................................................... 7
IV Response to Selection Criteria—A. Primary Criteria
State of good repair .............................................................................................................................. 8
Economic competitiveness ................................................................................................................ 10
Quality of life ....................................................................................................................................... 14
Environmental sustainability ............................................................................................................ 19
Safety ..................................................................................................................................................... 20
IV Response to Selection Criteria—B. Secondary Criteria
Innovation ............................................................................................................................................. 22
Partnerships .......................................................................................................................................... 23
IV Response to Selection Criteria—C. Results of Beneft-Cost Analysis
Beneft-cost analysis summary ......................................................................................................... 26
V Project Readiness
Technical feasibility ............................................................................................................................. 28
Financial feasibility .............................................................................................................................. 28
Assessment of project risks & mitigation strategies ..................................................................... 28
Project schedule ................................................................................................................................... 29
Planning approvals ............................................................................................................................. 30
VI Federal Wage Rate Certifcation
Federal Wage Rate Certifcation ........................................................................................................ 31
Contents
7th Ave Mixing Zone along West Segment South Site Plan of East Segment
Burke-Gilman Multimodal Connector TIGER Application 1
I Project Description
Overview
Te Burke-Gilman Multimodal Connector (BGC) in Seattle
WA, will provide a critical connection between economically
distressed areas throughout the Sound Transit Link light rail
corridor and educational and economic opportunity. Te
BGC will transform 1.7 miles of one of our nation’s most
treasured and heavily used urban trails from its current failing
state (Shared-Use Path Level of Service, or SUPLOS E/F) into a
national model that demonstrates how:
• Active transportation infrastructure is uniquely capable
of serving as a Ladder of Opportunity by providing low-
cost or no-cost connections to education and training,
employment, and social services.
• Communities can leverage non-traditional
transportation funding sources, such as universities,
in funding and constructing regional transportation
infrastructure.
• Active frst and last mile connections can expand the
efective reach of light rail and bus transit networks
while mitigating neighborhood impacts at the end of
the line.
• Engineering solutions, such as grade and mode
separation can radically increase safety, capacity, and
fow in active transportation corridors.
• Innovative design can use a consistent language of visual
and tactile cues to regulate behavior without signage or
traditional trafc controls.
USA Today describes the Burke-Gilman as “a bike-obsessed
city’s pride – and as far as urban bike paths go, arguably the
nation’s [pride] . . . One of the most heavily ridden multi-use
paths in the country . . . [and] the ‘backbone’ of Seattle’s cycling
infrastructure.” Tis backbone strains under a heavy load and
will soon break, as trail trafc more than doubles with the
addition of the SR 520 multi-use path and the opening of Link
light rail’s interim terminus adjacent to the UW campus and
the most congested part of the trail.
“Tis project not only will ensure critical non-motorized
connections to the soon-to-open light rail station are in place,
but further the University District as a regional destination and
economic center.” — Joni Earl, Sound Transit
TIGER funding represents the last-dollar-in and the last
opportunity to complete the full corridor in time for the
opening of Link light rail in 2016. If we miss this opportunity,
severe congestion on the Burke-Gilman will limit the ability
of both Link light rail and the adjacent SR 520 Bridge
Replacement project to deliver on their full potential. Tis
modest additional investment unlocks that potential and
ensures that the public receives the best possible value from
the regional and federal investment in these megaprojects.
Te BGC will be used by workers of all income levels,
students and seniors, providing safe and economical
transportation options for people of all ages, abilities
and backgrounds. By serving projected bicycle and
pedestrian transportation demand, the BGC will help
optimize transportation efciency and support economic
competitiveness, provide dependable access to jobs, improve
public health, reduce greenhouse gas emissions and reliance
on foreign oil, and enhance community livability.
Project goals
Te BGC responds to the urgent need to address the current
failing condition (SUPLOS E/F) and state of disrepair on
the state’s most heavily used multi-use trail in anticipation
of a 58% increase in peak-period pedestrian, 242% increase
in peak-period bicycle, and 170% increase in total weekday
volumes by 2030. Te following improvements are all
occuring within a quarter-mile of the BGC corridor: $1.9
billion University Link light rail extension, $3.7 million Puget
Sound Bike Share System, $4.6 billion SR 520 replacement,
greater than $1 billion housing investment, $311 million
in new medical facilities, and $260 million entertainment
investment. Tis modest $28 million BGC project is the small
but critical lynchpin that is assumed and relied upon by these
$8 billion in new investments and the existing $5.9 billion per
year enterprise that is the UW.
The BGC will expand capacity
Te BGC fully accommodates anticipated growth replacing
the single 10-16 foot wide shared-use asphalt path with
parallel mode- and grade-separated paths with a combined
width between 22 and 28 feet. A wide rolled curb (18 inches
wide and 4 inches tall) separates the asphalt cycle track from
the concrete sidewalk and gravel shoulders are included to
accommodate joggers. Te combination of mode separation
and expanded width dramatically increases efective capacity,
contributing to LOS A for pedestrians and LOS C for
bicyclists beyond 2030.
Lewis Lane Mixing Zone Bridge and Transit Plaza.
2 Burke-Gilman Multimodal Connector TIGER Application
I Project Description
The BGC will improve safety
A new underpass will be constructed at Pend Oreille Rd.,
eliminating conficts with transit and automobiles at a primary
campus entrance. Signalization and crosswalk improvements
at 15th Ave NE and at University Way NE create independent
signaling and leading phases for trail users. Intersection
realignment and a speed table are incorporated at Brooklyn
Ave NE.
Mixing zones are introduced to provide a consistent, legible
approach throughout the corridor and to consolidate the more
than 80 intersection points along the trail. Te cycle track
rises as it approaches mixing zones, creating a speed table,
and diferential paving bands signal the transition visually and
tactilely. Pedestrian-scale lighting, diferential paving, street
furnishings and public art create natural calming for through-
trafc. Pedestrians on intersecting paths are provided landing
space at the edge of the mixing zone before entering cross
trafc, improving sightlines for all users.
Principles of Crime Prevention Trough Environmental
Design (CPTED) are applied throughout the corridor.
Lighting level, and more importantly distribution, is
enhanced throughout the corridor with LED fxtures that
will reduce maintenance burden and eliminate dark patches
that compromise safety. Sightlines and activity levels are
improved, enhancing natural surveillance, and consolidation of
intersections supports natural access control.
The BGC will promote transit connections
Te BGC removes the capacity constraint on bicycle and
pedestrian frst- and last-mile connections to Link light rail,
Sound Transit Express Bus, King County Metro Transit,
Community Transit, UW Shuttles service and Microsof
Connector shuttle service. It creates a new transit plaza on
NE Pacifc St serving King County Metro Transit and UW
Shuttles. It also signifcantly improves pedestrian connections
between the trail, King County Metro Transit, Community
Transit and Sound Transit service on NE Stevens Way and
the campus’ largest academic and research complex, the 3.5
million square foot Health Sciences Center and 1.8 million
square foot UW Medical Center on the south side of NE
Pacifc St.
All King County Metro Buses currently have bicycle racks
to accommodate multimodal users. Sound Transit has a policy
to confgure all light rail to hold bicycles as well.
The BGC will stimulate and support bicycling
Beyond providing a protected of-street facility suitable
for riders of all ages and abilities, the BGC provides
essential beginning and end of trip amenities. In addition
to incorporating bicycle parking at mixing zones, the BGC
develops 172 weather-protected, secure bicycle parking stalls
adjacent to the trail and Health Sciences Center. Self-service
bicycle repair facilities are incorporated and lockers and
showers are provided in adjacent buildings. Bike share stations
for Puget Sound Bike Share, the regional system launching in
2014, are incorporated at key locations.
Detailed list of improvements
Te project is structured as two phases. Phase One is
supported by a combination of local and CMAQ funds and
Phase Two is supported by a combination of local and TIGER
funds. To ensure that completion of the entire corridor prior
to the opening of Link light rail remains feasible, Phase One
will break ground in early summer of 2014 while Phase Two
will commence following TIGER awards in autumn 2014.
Phase One does have independent utility; however, the full-
potential of the BGC, Link light rail, and the SR 520 Bridge
Replacement and HOV program cannot be realized without
timely completion of the full BGC project.
Phase One components
• Central Section Trail: 1,000 Linear Feet (LF) of
sidewalk with 1,000 adjacent LF of cycletrack and 1,750
LF of compacted gravel jogging trail. 100 LF* adjacent
pathways and trail spurs consolidated in 4 mixing zones
(10,350 SF). 1,450 Face Feet (FF) of retention. 79 new or
replacement trees. Improved ADA connections, security
features, and street furnishings.
• Lewis Lane Bridge and Transit Plaza: New vertical
circulation between the trail and overpass of Pacifc
St. and transit stops for King County Metro and UW
Shuttles below. Expanded and fnished transit plaza
with improved security features and street furnishings.
Renovation of existing railroad trestle to double the
deck width. Construction of a new mixing zone and
reconfguration of an adjacent UW loading dock to
smooth a sharp turn in the trail and provide landing
Busy intersections like these drop people onto the trail with poor
sightlines making safe travel difcult for trail users and trail crossers alike.
Burke-Gilman Multimodal Connector TIGER Application 3
The location of the pedestrian/bicycle crossing at Pend Oreille Rd. does
not allow for safe passage. The new underpass will be constructed in
a manner to accommodate clearance, mode separation and adequate
sight lines to the north and south all with less than 5% slope for
universal access. This critical improvement to one of the highest risk
trail intersections will improve public safety, particularly for commuters,
students and seniors residing at the senior housing facility half a mile to
the north of the future underpass.
space to reduce crossing conficts at the overpass of
Pacifc St. 1,575 FF of retention. 14 new or replacement
trees.
• University District Bike Station: New ADA
connections to T-Wing overpass, a primary connection
for transit rider access to the Health Sciences Center, the
largest single research and teaching facility on the UW
campus. Bicycle storage, including 52 stalls in a weather-
protected shelter and 120 stalls in a shared-access,
enhanced security enclosure. Bicycle repair station,
security enhancements, and new street furnishings. 600
LF of trail spur. 10 FF of retention.
Phase Two components
• West Section Trail: 1,450 LF of sidewalk with 1,600
adjacent LF of cycletrack (number does not match
sidewalk because of cycletrack reroute at 7th Ave) and
1,300 LF of compacted gravel jogging trail. 350 LF**
of adjacent pathways and trail spurs consolidated in
3 mixing zones, 1 overlook, 3 crossings (18,450 SF).
4,100 FF of retention. 211 new or replacement trees.
Improved ADA connections, security features, and
street furnishings. Improvements to signalization and
crossing conditions at 15th Avenue and at University
Way. Speed table and intersection squaring at crossing
of Brooklyn Avenue.
• East Section Trail: 2,275 LF of sidewalk with 2,275
adjacent LF of cycletrack and 1,675 LF of compacted
gravel jogging trail. 1,125 LF*** adjacent pathways and
trail spurs consolidated in 8 mixing zones (15,075 SF).
9,000 FF of retention. 308 new or replacement trees.
Improved ADA connections, security features, and
street furnishings.
“I think we need to make it bigger, safer and take out all the
tree root bumps. Do that, and more people will use it than ever,
which is good for everyone!” — Andy Strickland
• Pend Oreille Rd. Underpass: 1,065 LF of sidewalk
with 1,065 adjacent LF of cycletrack and 1,625 LF
of compacted gravel jogging trail. 950 LF* adjacent
pathways and trail spurs consolidated in 1 mixing
zone (2,000 SF). 2,750 FF of retention. 161 new or
replacement trees. Stormwater detention and treatment.
New ADA connections to 25th Avenue NE and
Facilities Services Training Center. Utility relocation.
Trail interchange with Pend Oreille Rd. Grade separated
crossing (trail underpass) of Pend Oreille Rd., the most
illegible and hazardous crossing in the corridor and
a primary bus transit and automobile entrance to the
UW campus. Removal of surface parking to facilitate
trail realignment and underpass. (A nearby parking
replacement project triggered by the BGC and estimated
at $3 million has not been included in the project scope
and will be funded separately by the UW.)
*Adjacent pathways and trail spurs calculated are not existing paths,
but new paths to be constructed.
**140 LF of trail transition asphalt paving leading into 7th Ave
Mixing Zone was included in this fgure.
***630 LF of trail transition asphalt paving leading into Ravine
Mixing Zone was included in this fgure.
I Project Description
4 Burke-Gilman Multimodal Connector TIGER Application
I Project Description
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Bellevue
Issaquah
Redmond
Bothell
Renton
SEATTLE
Kirkland
Seatac
Expedia
2,270 jobs
Boeing
10,500 jobs
Starbucks
4,000 jobs
Amazon.com
15,000 jobs
University of
Washington
27,000 jobs
Microsoft
40,000 jobs
First Hill
hospitals
20,300 jobs
19,000 jobs
Seattle
Children’s
5,600 jobs
4,000 jobs
T-Mobile
4,000 jobs
21,000 jobs
AT&T
2,000 jobs
Sea-Tac
International
Airport
89,000 jobs
Map Key
Burke-Gilman Multimodal Connector
Economically Distressed Area*
Burke-Gilman Trail
Regional Trail
Highway
Washington State Ferries
Link Light Rail
University Link expansion (2016)
North Link expansion (2021)
East Link expansion (2026)
Project latitude 47.650852
Project longitude -122.305739
*EDA as defned by New Market Tax Credit Eligibility
Realizing investments
Light rail investments are connecting
the region’s economically distressed
areas - the BGC extends that access to
the educational and employment
opportunities in the UCUC, an area
quickly becoming “the region’s next
major hub for innovation and
technology” according to Seattle’s
Economic Development Commission.
Critical connection to opportunity
Located at the confuence of the regional light rail
and trail systems, the Burke-Gilman Multimodal
Connector creates access to jobs and education at
the University of Washington and the fast-growing
University Community Urban Center for people
from across the region without putting more cars
on the road.
Regional context
Burke-Gilman Multimodal Connector TIGER Application 5
I Project Description
Local context
Leveraging existing investments
Te BGC supports an $8 billion set of transportation investments, in which the federal government has contributed
approximately $1 billion for SR 520 replacement and Sound Transit’s University Link light rail extension.
Te BGC connects residents of the university area to this new infrastructure and allows users from throughout the region to
connect to educational and employment opportunities in the district.
Te university area is home to more than 16,000 residents and a daily campus population of nearly 59,000 – as well as
hundreds of independent businesses and community services.
Husky Stadium
72,000 seats
University of
Washington
27,000 employees
43,800 students
UW Medical Center
1.4 million outpatient and
emergency room visits to UW
hospitals and clinics annually
Alaska Airlines Arena
10,000 seats
University Village
Shopping Center
Top 5% in the nation for sales
120 local shops and businesses
Blakeley Manor
Seattle Housing Authority
senior housing project
University
Housing
2,995 beds
Planned $350
million investment
University
Housing
2,500 new beds
$851 million investment
130 local
shops and
businesses
Private
Development
2012-2013 | Five
developers over six sites
created 677 new units
2014+ | 22 developers on
27 sites with 2,438 units
planned or under
construction
Start-up Hall
Public/private partnership
at Condon Hall hosting
early-stage tech companies
New Ventures
Facility
Fluke Hall is home to
UW’s business incubator
hosting UW start-ups.
light
rail
light
rail
To Capitol Hill (neighborhood)
Six minutes from UW by bicycle
Capitol Hill is home to more than 10
signifcant higher education
institutions, including Seattle Academy of
Arts and Sciences, Seattle University, and
Seattle Central Community College; six
major city parks including the
Olmstead-designed Volunteer Park and
Conservatory; and fve Seattle landmarks
including the Seattle Asian Art Museum.
To Fremont (neighborhood)
Seven minutes from UW by bicycle
Fremont is home to seven global
technology companies, including:
• Adobe Systems
• Google
• Tableau Software
• Getty Images
It is also home to three signifcant
city parks including Gas Works Park
on the north shore of Lake Union.
The Fremont and Aurora bridges link
to downtown Seattle and other
major North/South destinations.
To Ballard (neighborhood)
12 minutes from UW by bicycle
The Lake Washington Ship Canal defnes the southern edge of the
area, which is a major gateway to the Puget Sound and the hub of
Seattle’s commercial fshing industry. Over 1 million tons of
cargo, fuel, building materials and seafood products pass
through the locks each year. The Hiram M. Chittenden Locks
and the Botanical Gardens are city landmarks and serve as a
critical gateway between the Puget Sound and
lakes Union and Washington.



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Map Key
Puget Sound
Bike Share
station 2014
University Link
extension 2016
North Link
extension 2021
Project Location
Latitude | 47.650852
Longitude | -122.305739
to SR 520
multi-use trail
6 Burke-Gilman Multimodal Connector TIGER Application
Funding partners
• Project level lead and primary grant recipient, responsible for project design, construction, operations
and maintenance.
• Physical and fnancial steward of the most heavily used section of multi-use trail in the state and second-
largest transit district in the state following Downtown Seattle.
• $10.9 million (38.16%) in local match contribution.
• Metropolitan Planning Organization and Economic Development District for the central Puget Sound
region representing 72 cities, four counties, four port districts, 11 transit agencies and two Native
American tribes.
• HUD designated Preferred Sustainable Community; awarded $5 million Sustainable Communities grant.
• $3.02 million (10.58%) Congestion Mitigation Air Quality grant for trail section from Rainier Vista to
15th Ave NE.
• Te public utility providing electrical power to Seattle and the University of Washington.
• $350,000 utility infrastructure acquisition in trail right-of-way and project coordination.
• Major pediatric referral center for WA, AK, ID and MT; one of the top 10 children’s hospitals nationally.
• Adjacent to Burke-Gilman Trail and heavily invested in build-out of pedestrian and bicycling network in
the region.
• $120,000 fnancial contribution to total project cost.
• Maintains and operates remaining portion of the trail in city boundaries. UW project partner on SR
520 and Montlake Triangle projects. Owns two project-adjacent arterials and three arterials crossing the
project corridor.
• $100,000 (.35%) in-kind contributions of right-of-way access, signalization support, and infrastructure
improvements at key intersections.
• Provides broad range of public transportation services across King County – operates nearly 220 bus
routes for 115.4 million passenger trips annually. Its transit service helps to make the university area the
second largest transit hub in the state by providing more than 2,350 weekday runs.
• In-kind contributions valued at $25,000 (.09%) of street furnishings, transit information displays, and
related passenger amenities.
• National non-proft dedicated to creating a nationwide network of trails from former rail lines.
• $40,000 (.14%) in-kind contribution of permanent bicycle and pedestrian counting technology.
Supporting partners
• Application supported by Governor Jay Inslee and 22 members of state legislature.
• Lead agency for the SR 520 Replacement Project and the Montlake Triangle project.
• Coordinated on project concept and timing to ensure alignment with WSDOT and Sound Transit projects.
• Provides light rail, regional express bus and commuter rail service in King, Pierce and Snohomish
counties – a population of approximately 3 million. Building the University of Washington Link light rail
station adjacent to the project.
• Regional partner along with WSDOT, SDOT, KCDOT and UW to ensure connectivity between light rail
and bicycle/pedestrian infrastructure and transit.
• Regional transit agency with seven bus routes and more than 40 roundtrips each weekday between
Snohomish County communities and the university area.
• Coordinating bus and bicycle/pedestrian connections between the trail and transit service.
II Project Parties
Burke-Gilman Multimodal Connector TIGER Application 7
III Grant Funds & Sources
Grant funds & sources
Te UW is requesting $14 million in
TIGER 2014 funding, approximately
49% of the total project costs. Te UW
has already secured all other required
funding making this federal investment
the last-dollar-in and allowing
completion of the project in time to
support the opening of Link light rail
in the frst quarter of 2016. Tis project
is eligible for federal funding under
chapter 53 of title 49, USC. With this
funding, construction of Phase Two, in
which TIGER funds will be employed,
will start in February 2015.
Phase One funds (both local
and CMAQ) have been obligated
and construction will be underway
concurrent with TIGER proposal
review. In addition to bringing a
substantial and non-traditional pool of
its own local dollars to the project, the
UW has assembled a diverse group of
funding partners whose contributions
are detailed in Section II: Project Parties.
Whether they bring cash or in-kind
contributions, project partners have
assured us that they are ready to proceed
immediately upon notice of award.
Additionally, the UW has contingency
funds in reserve sufcient to ofset
the loss of any funding partner due to
unforeseen circumstances.
Te UW has all local dollars pledged
to the project available as cash-in-
hand, with no additional fnancing
or funding approvals required for the
project to proceed. A summary budget
including sources and uses is included
at right. Detailed budget information
including sources and uses by project
phase and component along with a
table of proportional sources and uses
by funding partner and activity type
are included in the appendix and on
the project website http://www.uw.edu/
burke-gilman.
SUMMARY BUDGET
Total Uses $28,557,251 100.0%
Consultant Services/A&E $829,171 2.9%
Construction $20,568,283 72.0%
State & Local Taxes $1,974,555 6.9%
PM/CM, Permitting, Compliance $2,350,301 8.2%
Other $140,000 0.5%
Total Sources $28,557,251 100.0%
UW $10,897,646 38.2%
Funding Partners $637,400 2.2%
PSRC/CMAQ Grant $3,022,205 10.6%
TIGER $14,000,000 49.0%
MATCHING SUMMARY
Unapplied Match
1
$4,902,980 25.9%
Participating CMAQ Match $471,674
TIGER Eligible Match
2
$6,122,992 30.4%
1
Includes consultant services for design and engineering along with encumbered Phase One
overmatch
2
TIGER eligible match as a percent of the sum of the TIGER eligible match and TIGER award.
Located next to the intersection of Adams Lane
NE and Cowlitz Rd. N, the BGC Mock-up Project
provided the opportunity to further test the
surface materials and construction methods that
will be used for the length of the UW portion of
the Burke-Gilman Trail.
8 Burke-Gilman Multimodal Connector TIGER Application
IV Response to Selection Criteria—A. Primary Criteria
State of good repair
Te BGC is supported by the UW’s existing Campus Master
Plan (http://goo.gl/r1nkO) and the City’s Bicycle Master Plan
(http://goo.gl/vm8Qbk) and Pedestrian Master Plan (http://
goo.gl/yBkHj), which call for building high-quality pedestrian
and bicycle facilities and maintaining them in a state of good
repair. Tese documents direct the UW to maintain a network
of campus pedestrian and bicycle paths and improve ADA
accessibility as a condition of development; maintain adequate
pathways for unimpeded passage during peak pedestrian
volumes; improve the quality and quantity of bicycle facilities;
and, accommodate pedestrian circulation needs resulting
from increases in transit.
Te BGC has specifcally been identifed in the Seattle Bike
Master Plan as critical to accommodating growth in trail use
associated with the trail-adjacent SR 520 multi-use path, Link
light rail stations (2016 and 2021) and 2,500 new UW housing
beds (2015).
Urgent investment required
With the underlying rail infrastructure dating back to
the early 1900s and much of the current asphalt trail
infrastructure dating back to the 1970s, the trail is in critical
need of signifcant reinvestment. Te trail’s asphalt edges
are unraveling and the presence of root heaves, pavement
deterioration, invasive vegetation, blind intersections and
conficts between modes have made travelling on the trail
treacherous, particularly during peak commute periods when
over 500 peak hour pedestrians and 900 peak hour bicyclists
(11, 700 total daily users) travel along and across the trail.
Despite fxes to maintain a functioning corridor, the trail
continues to deteriorate and demands more comprehensive
rehabilitation to safely and efectively serve current users and
accommodate projected volumes of travel associated with
light rail and rapid densifcation of the University Community
Urban Center (UCUC). Within the BGC, not only is the
trail surface in a state of disrepair, but so is other public
infrastructure. Sidewalks and trail spurs are in poor condition,
signage and signal equipment are obsolete and connections
to other transportation options and key destinations are
inadequate. Te BGC improves or replaces all connecting
sidewalks and trail spurs, updates signage and signals, and
creates high quality connections to two multi-bay bus transit
stations and the Link light rail station.
“Te deteriorating condition of the trail combined with
increased usage by both pedestrians and bicyclists contribute to
the growing risk of collisions between transit vehicles and trail
users.” — Neal Safrin, ATU Local 587 Vice President
A 2011 performance analysis using the FHWA SUPLOS
calculator found that the trail currently operates at levels of
service E and F. With the BGC, expanded right of way and
mode separation will increase levels of service to LOS A for
pedestrians and LOS C for bicyclists and sustain those levels
well beyond 2030 by which time peak-period bicycle trafc on
the trail will have increased 242% and pedestrian trafc will
have increased 58%. Separating the trail into dedicated bicycle
and pedestrian facilities will minimize conficts between
the modes, improve fow, and create infrastructure that is
safe, comfortable and convenient to use, encouraging more
commuters to travel by foot, bike and transit.
Replacing the aging and deteriorating mixed mode asphalt
trail with an asphalt cycle track and a separate concrete
pedestrian sidewalk will lengthen the useful lifespan and
integrate more durable surface and subgrade materials. At
intersections with arterials, improving sightlines, optimizing
signal timing, narrowing crossing distances, implementing
grade separation, and reassessing right-of-way assignments
CURRENT CONDITION FUTURE CONDITION
LEVEL OF SERVICE: E/F LEVEL OF SERVICE: A/C
DEMAND: 11,700/DAY DEMAND(2030): 26,400/DAY
Projected Bicycle and Pedestrian Trips per afernoon peak hour
0
1000
2000
3000
4000
2010 2012 2014 2016 2018 2020 2022 2024 2026 2028 2030
3,080
242% increase
790
58% increase
Alder, Elm residence halls open
Mercer Court Apartments open
Puget Sound Bike Share launches
Husky Stadium renovations complete
Terry, Maple residence halls open
University Link expansion opens
North Link expansion opens
Seattle Children’s and University Village expansions complete
Lander residence hall opens
SR 520 Multiuse path projected opening
East Link expansion opens
Burke-Gilman Multimodal Connector TIGER Application 9
IV Response to Selection Criteria—A. Primary Criteria
BURKE-GILMAN TRAIL SURFACE DISTRESS
 ROOT HEAVES
 TRANSVERSE CRACKS
 LONGITUDINAL CRACKS
 ALLIGATOR CRACKS
 PATCHING/POTHOLES
 RUTTING
will reduce the risk of collisions between pedestrians,
bicyclists and motorists, ensuring the BGC meets the
transportation needs of people of all ages, abilities and modes.
Status quo threatens the network
If lef unimproved the trail will continue to deteriorate,
compounding the costs of maintenance and repair. Without
improvements, users will continue to experience travel time
delays, particularly during peak commute periods when light
rail passengers food onto the trail at seven minute intervals.
If the improvements are not completed, the resulting delay is
expected to total $5,214,000 (7% discount rate) or $8,941,000
(3% discount rate) in cost-equivalent losses over 20 years.
Inadequacy of frst and last mile connections will adversely
impact the functioning of Link light rail, diminishing
the public beneft of this substantial federal and regional
investment. Te added congestion and increased crossing
confict will also lead to an increased number of collisions
along and across the trail and on adjacent streets where
bicyclists and pedestrians will spill over – an unacceptable
public health outcome.
Te poor condition of the trail threatens the continued
smooth functioning of the UW, a critical economic growth
engine in this region and center of opportunity for both
employees and students who are preparing to enter the
workforce. Eighty-six percent of students and 50 percent
of employees commute on foot, bike or by transit, many of
whom use the trail every day.
Complete capital funding
With the TIGER program providing the last-dollar-in, the
BGC is fully funded. Local match dollars are fully secured
and have been placed in the project account. Additional
fungible capital dollars are available to address bid variability
or unexpected conditions encountered by the contractor. With
TIGER funding in place, the UW will be prepared to deliver
the project in its entirety in time for the early opening of Link
light rail in the frst quarter of 2016.
Sustainable O&M funding
Te UW has granted multiple easements permitting the
routing of utilities in the trail corridor. Te majority of
these agreements will be renewed in the next year and
the University will use payments received in association
with those easements to establish a trust for the ongoing
operations and maintenance of the BGC. Maintenance and
repairs of the trail will be performed largely in-house by UW
Facilities Services.
Improved system resiliency
Improved stormwater management, hillside retention, and
a deliberate planting strategy will improve trail resiliency by
reducing undermining at the trail’s edge and reducing slide
risk associated with heavy rain and seismic events. Subgrade
improvements, root barriers, and concrete pedestrian zones
will provide a more resilient surface.
Te project enhances resiliency of the Link light rail system
and adjacent UW Medical Center by creating a north-south
connection signifcantly above SR 513, portions of which
currently food in heavy rain events and rest on seismically
vulnerable fll and by providing an alternate connection that
bypasses to the severe congestion on SR 513 and Pacifc St.
during both weather and public events.
Dangerous root heaves can be found throughout the entire project
corridor – the busiest section of Washington’s most popular bicycle and
pedestrian trail.
10 Burke-Gilman Multimodal Connector TIGER Application
IV Response to Selection Criteria—A. Primary Criteria
Economic competitiveness
Efciency, reliability & cost competitiveness
Bicycle and pedestrian infrastructure investments are highly
efcient when considering both land and construction costs,
moving more people in a more compact right of way. By
providing the equivalent of 1.7 miles of new sidewalks and 1.7
miles of protected bike lanes, the BGC will fully accommodate
the peak-period increases in utilization (242% bicycle and
58% walking) anticipated by 2030 without sacrifcing a
single automobile travel lane, a single bus stop, or any future
building sites for UW or private sector facilities.
Bicycle and pedestrian investments also deliver long-term
efciency with comparatively low and highly stable operation
and maintenance costs. Bicycling and walking are energy
efcient modes and the BGC connects travelers in these
modes to an electrifed trolley bus and light rail transit system
fueled by carbon-free hydroelectric power.
Te BGC will provide a highly reliable and high volume
bicycle and pedestrian connection to regional education
and employment centers, both directly and as a frst/last
mile connection to light rail and the regional bus system,
unimpeded by trafc delays. Building the BGC provides time
savings with a discounted present value of over $5 million (7%
discount rate) in shorter travel times for bicyclists, car drivers,
and transit riders over the next 20 years (nearly $9 million at a
3% discount rate).
Te BGC will keep money in users’ pockets. In 2012,
American households making less than $30,000 per year spent
an average of 14.6% of their total expenditures, an average
of $3,554.60, on costs related to the need to drive a car.
Providing the public with access to safe, reliable and efcient
non-motorized transportation modes and efective transit
connections is the most efective way to guarantee long-term
cost competitiveness.
Economic productivity of land
Te BGC provides key benefts to the economic productivity
of land in the UCUC, which is a hub of economic vitality,
innovation and educational opportunity. Te Puget Sound
region and the federal government are making signifcant
investments in infrastructure to support the area’s current
success and in anticipation of future growth. Te BGC
connects the UW Center for Commercialization and the
Startup Hall incubator to the regional transit network.
In addition, it supports the UW’s transportation demand
management program which has generated $1.6 billion in
present value economic activity through $72 million savings
in land acquisition costs that were reinvested in academic and
research programming with a $22.56 to $1 economic impact.
Economic productivity of capital
Te BGC is bypass surgery for a clogged artery in the beating
heart of one of Washington’s greatest economic engines. Tis
timely procedure is an investment in the vitality of the UW,
which generates an annual economic impact of $9.1 billion
for the state and region. For every $1 allocated to the UW,
$1.48 in tax revenue and $22.56 in state economic impact
are generated. Handling over $1 billion in annual research
funding, the UW conducts more federal research than any
other American public university.
Economic productivity of labor
Te University Community Urban Center (UCUC) is a major
employment hub. Te UW is the largest employer in Seattle
and third-largest in Washington. It supports nearly 70,000
jobs statewide (including 27,000 in the UCUC) in every sector
of the economy. Te UW is also proud to have more than
16,000 of its employees represented by nine labor unions.
Te BGC provides a critical Ladder of Opportunity and
literal pathway to the middle class in the form of access to
stable, well-paying jobs and educational opportunities. In
addition to world-class faculty and research staf, UW’s more
than 27,000 employees include 2,700 nurses, 700 custodians,
400 building trades workers, and numerous other family-wage
job classes. UW also has a diverse workforce with a third of
UW employees being nonwhite, compared to 16% of the state
population. Furthermore, the Tuition Exemption Program
means that every job at UW comes with a free college
education.
Te BGC, both on its own and as a critical connection
to the new University of Washington Link light rail station,
provides a reliable and afordable means of commuting for
the over 34,000 people who work in the UCUC, enabling
workers to bypass trafc delays and get to work efciently
and on time. Within just one mile of the project area,
seven census tracts meet the Public Works and Economic
Bulldog Newsstand and Café was founded in 1983 and is a cornerstone
of the University District’s small business population. Along with its two
owners, the business employs a small, diverse staf of people who help
stock and sell printed literature along with a bustling café that has a walk-
up, open air window to University Avenue.
Burke-Gilman Multimodal Connector TIGER Application 11
IV Response to Selection Criteria—A. Primary Criteria
Development Act defnition of economic distress; the BGC
runs directly through three of them. As a critical connection
for users of the new Link light rail station, the BGC provides
access to employment and education for residents of the 52
economically distressed census tracts within two miles of the
Link Light Rail corridor. Over 3,000 UW employees and 4,000
UW students currently commute from these economically
distressed areas.
New investments in these transportation options will
provide workforce and student populations with efcient
access to employment. Currently, only 77% of UCUC
households have access to a private automobile (compared to
84% citywide), making area residents highly dependent on
walking, biking and transit.
In the UCUC, as many as 78% of resident trips and over
half of non-resident trips to neighborhood business districts
utilize walking, biking and transit. Investments that support
these modes beneft the vitality of small businesses.
“Skanska chose a location on the Burke-Gilman Trail for
our frst commercial development in Seattle – an innovative,
mixed-use building that is part of the City of Seattle’s Deep
Green Pilot Program. Te tenants of our new building want to
be here, in large part, because of the Burke-Gilman Trail. Tese
businesses, including Brooks Sports, are agreeing to operate and
do business diferently in order to be in this unique, energy-
efcient building, and integrating with the Burke-Gilman Trail
is integral to that change.” — Lisa Picard, Executive Vice
President, Skanska USA Commercial Development, Inc.
Long-term job creation & other economic opportunities
Te UCUC is an employment hub in the Puget Sound
region and will continue to grow if adequate transportation
investments are made.
UW has had extraordinary results promoting new business
growth through the success of its research initiatives. UW’s
Center for Commercialization (C4C) is one of the top
fve university technology transfer ofces in the nation. It
manages a total patent portfolio of over 2,200 issued and
pending patents, with over 265 companies started by UW
students and faculty using UW-developed technology. As
a result, the economic impact of spin-of businesses and
commercialization of research in existing companies will
reach between $3.66 billion and $6.6 billion by 2020.
In Fiscal Year 2013 the UW launched 17 new start-up
companies using UW-developed research technologies,
making it the UW’s single most productive year for start-up
formation. Te start-ups span a broad range of businesses—
from medical devices and therapeutics to clean technology
and sofware. In February 2012, the C4C New Ventures
Facility opened adjacent to the BGC project area on the
east side of campus. Te Facility is a business incubator that
provides UW start-ups access to critical lab and ofce space,
priming some of the most promising UW early-state start-ups
to attract outside investment and success.
Te UW is also partnering with the local entrepreneurial
community to facilitate space for start-ups in the UCUC. In
2014, UW’s Condon Hall, located just of the Burke-Gilman
trail on the west side of campus, became Startup Hall, a
home base for early-stage companies. Tis public-private
partnership was the brainchild of UW and entrepreneurial
community leaders, the frst step in a multi-year efort to
transform the UCUC into a thriving entrepreneurial hub.
Startup Hall will house up to 20 small, early-stage tech
companies.
Te area surrounding the UW is home to hundreds of
small and independent businesses and has been identifed
by the City of Seattle as the next neighborhood where a new
hub of innovation, technology and job creation can emerge
with an eye towards socioeconomic mobility. Te City
has worked with community and business stakeholders to
develop the University District Partnership, which has been
forged with unprecedented levels of community engagement
and collaboration between the City, UW, Sound Transit,
business owners, and residents of the UCUC. Tere is broad
neighborhood consensus to brand and grow the UCUC
Philip Muschett, husband and father of fve, accesses his family-wage
UW staf position via a multimodal commute that will be hastened and
simplifed by the BGC and University Link light rail. Starting far south in
economically distressed Tukwila, WA, Philip rides two miles to a bus stop,
takes transit ten miles to downtown Seattle, and rides four more miles to
the University. Starting in 2016, Philip will have the option of taking light
rail almost all the way from Tukwila to work; TIGER funding for the BGC will
make the last mile connection between light rail and his work possible.
12 Burke-Gilman Multimodal Connector TIGER Application
IV Response to Selection Criteria—A. Primary Criteria
as more attractive to entrepreneurs and major employers
who are engaged in innovation enterprises that leverage the
UW’s presence and stimulate the neighborhood and regional
economic base. Employment in the business district adjacent
to the UW campus grew 10% from 2011 to 2012, and the City
of Seattle expects jobs in the district to nearly double by 2035.
A new Urban Design Framework and new zoning are planned
to support a thriving commercial district, encourage new jobs
and businesses, create public space, integrate transportation,
and sustain the environment.
Small / disadvantaged / veteran owned
Tere are hundreds of small and independently-owned
businesses located in the UCUC. From new technology startup
companies to hundreds of retail and restaurant businesses,
many immigrants and businesses of color serve students,
workers, and residents of the area. Te State of Washington
has certifed 329 businesses in Seattle as Women’s Business
Enterprises, 97 as Minority Women’s Business Enterprises and
222 as Minority Business Enterprises. Tere are over 5,000
veteran-owned businesses in Seattle, patronized by thousands
of UW students, employees, and visitors. Te BGC expands
the customer base for these businesses, by providing access to
the area through a safe and convenient connection to light rail,
local bus routes and other neighborhoods.
Near-term job creation
In addition to supporting current and future jobs at the UW
and in the UCUC, the BGC creates 463 job years, including
293 direct/indirect job-years and 170 induced job-years, based
on economic analysis using IMPLAN. Job creation from the
Project begins immediately, with 102 job-years generated in
2014 and 361 job-years generated in 2015.
A ladder of opportunity
Te UCUC is a center of employment, education and services.
Te BGC, is a critical multimodal connector that allows
individuals of all ages and income levels to access to and
beneft from crucial educational workforce and job training
opportunities.
Education
Guaranteeing afordable access to higher education by
reducing transportation costs is a critical element in the
pathway to the middle class. Workers with a Bachelor’s degree
earn twice as much as non-college graduates and 45% more
than those with an Associate’s degree.
Te UW serves over 43,000 students at the Seattle campus
and is the fagship research university in the Northwest. In
2013-2014, over 8,100 UW students, nearly thirty percent of
all undergraduate students, were eligible for Pell grants and
nearly 5,000 UW undergraduates were the frst in their family
to attend college.
Students at the UW come from all over Washington state
and the country. In 2013-2014, over 4,000 in-state students
were from economically distressed areas, many from South
Seattle neighborhoods for which the BGC will complete a
PRESIDENT OBAMA HAS CALLED FOR NEW RATING STANDARDS
THAT EVALUATE INSTITUTIONS OF HIGHER EDUCATION ON
ACCESSIBILITY, AFFORDABILITY, AND STUDENT SUCCESS.
ACCORDING TO THE CENTER ON HIGHER EDUCATION REFORM,
UW IS ONE OF JUST 19 CAMPUSES NATIONWIDE THAT IS
ACCOMPLISHED ON ALL THREE FRONTS:
• 25% OR MORE OF STUDENTS RECEIVING THE PELL GRANT,
• NET PRICE LESS THAN $10,000, AND
• A SIX-YEAR GRADUATION RATE OF 50% OR MORE.
THESE FACTORS AND THE UW’S 81% GRADUATION RATE
EARNED IT THE RANK OF SECOND AMONG THE NINETEEN
UNIVERSITIES.
Seattle, ranked 4th among startup hubs worldwide by the Startup
Genome, is without a doubt swimming in innovation. The relocation of
TechStars and Founders Co-op to the renamed Startup-up Hall is bringing
about quiet and strategic change. With doors set to open in July 2014,
Start-up Hall will be a magnet for innovation in Seattle. Chris Devore,
pictured here, Director of Seattle TechStars and investor/ advisor/ board
member at 20+ Seattle and Bay Area startups, is one of the leaders
facilitating the transformation.
Burke-Gilman Multimodal Connector TIGER Application 13
direct light rail connection. An increase in the number and
proportion of under‐represented minority students enrolled at
UW Seattle has grown over the past several years, comprising
of 13.4 percent of the 2013 freshman class, compared to 10.4
percent in 2006.
Job training and professional development
Working adults in the Seattle area seeking a career change or
career advancement can choose from more than 130 certifcate
programs from UW Professional and Continuing Education
(PCE). In 2012, over 4,200 students enrolled in professional
certifcate programs in more than 75 felds of study, such as
Construction Management, Engineering Leadership, Health
Informatics, Nonproft Management, Scientifc Computing,
and Web Technology Solutions. High graduation rates
(approximately 92%) for certifcate programs refect high
standards in teaching, course delivery and service in these
custom-built programs that address targeted needs specifc to
the local job market. In addition to certifcate programs, PCE
ofers stand-alone courses for career advancement; over 14,000
working adults enrolled in courses ranging from Construction
Safety to Project Management in 2012.
Services in the UCUC
Tere are an array of community, health, religious and social
services in the UCUC, serving a variety of populations with
a special emphasis on youth services. Te thirty-year-old
University District Food Bank serves 1,100 needy families
each week.
Services for at-risk youth provide higher education
advocacy and opportunity to young people struggling to
overcome poverty and adversity, including academic advising,
tutoring, scholarships, and career counseling; shelter and feed
homeless youth and provide, employment, substance abuse
counseling, and education.
Medical services in the UCUC include care at the UW
Medical Center and the UW School of Dentistry, providing
together over half a million patient visits per year. Te UW’s
many schools and colleges provide low or no cost services
to disadvantaged populations. Leading examples include
the UW Law Clinic which provides mediation, tax, and
entrepreneurial law services to disadvantaged populations at
no charge and the UW Medical Center which provides $40
million care to Medicare patients, $118 million to Medicaid
patients and $40 million in uncompensated care.
UW ECONOMIC IMPACT
• $9.1 BILLION TOTAL STATE ECONOMIC IMPACT
• $618.1 MILLION IN REVENUE TO STATE AND LOCAL
GOVERNMENTS
• $1.50 IN TAX REVENUE GENERATED FOR EVERY $1
ALLOCATED TO THE UW
• $22.60 IN THE STATE ECONOMIC IMPACT FOR EVERY $1
INVESTED IN THE UW
• 27,000 JOBS AT UW SEATTLE CAMPUS
• OVER 14,000 STUDENTS GRADUATE ANNUALLY FROM THE
UW
• UW CONDUCTS MORE FEDERAL RESEARCH THAN ANY OTHER
AMERICAN PUBLIC UNIVERSITY
IV Response to Selection Criteria—A. Primary Criteria
Hundreds of construction workers have been actively working on the
Montlake Triangle/Rainier Vista project since early February 2014.
This project is critical to the UCUC’s development and the regional
transportation network as it ties into both the BGC and provides the
western landing of the bridge that connects to Sound Transit’s Link light
rail station.
Dr. Matthew Sweet is an assistant professor in the Department of Surgery
at UW who uses the BGC to commute to work at both UW Medical Center
and Harborview Medical Center on Seattle’s First Hill from his home in
Wallingford.
14 Burke-Gilman Multimodal Connector TIGER Application
IV Response to Selection Criteria—A. Primary Criteria
Quality of life
Te BGC is a safe, reliable and afordable transportation
choice that decreases household transportation costs, reduces
our nation’s dependence on foreign oil, improves air quality,
reduces greenhouse gas emissions, and promotes public
health. It also has particular advantages for economically
disadvantaged populations, non-drivers, senior citizens, and
persons with disabilities – connecting all with education,
training and employment opportunities, both directly and by
enabling transit connectivity.
Te BGC directly addresses safety and capacity constraints
that disrupt community connectivity. It is rooted in and builds
on all six livability principles developed by the Department
of Transportation, the Department of Housing and Urban
Development and the Environmental Protection Agency as
part of the Partnership for Sustainable Communities.
1. The BGC provides more transportation
choices
Te BGC is the frst- and last-mile connection to the state’s
second most active transit district, providing direct access for
bicyclists and pedestrians to 60 bus routes operated by three
diferent regional transit providers, shuttles from fve major
regional employers and, starting in 2016, the regional Link
light rail system. Te BGC sits at the crossroads of SR 520, SR
513, and I-5, the main interstate highway on the west coast
running from Canada to Mexico. Te BGC provides a critical
local connection that reduces the impact of single occupancy
vehicles in these core corridors. Tis is why the UW, the state,
local and federal governments are investing billions of dollars
in Link light rail, SR 520, and adjacent bus transit facilities
to ensure that this area can accommodate transportation
growth and continue to thrive. Te BGC is the critical fnal
piece of the puzzle that allows these investments to reach
their full potential as an accessible, integrated multimodal
transportation system with low-cost transportation options
that provide reliable, safe and healthy mobility.
Decreasing household transportation costs
With a median household income 54% lower and individual
poverty frequency 138% higher than citywide averages, the
UCUC is in acute need of afordable transportation options.
Furthermore, UCUC households are 46% more likely to
be car-free than their counterparts in the rest of Seattle. By
providing a safe, convenient way to walk and bicycle for trips
within the UCUC and for connecting to bus and light rail
transit, the BGC reduces the need to travel by motor vehicle,
thus lowering household transportation costs.
Te gravitational center of UCUC-area transit service will
move to the Montlake Triangle transit center near its new Link
light rail station in 2016, which has no adjacent housing. Te
UCUC has a rich and growing housing supply (>$1 billion in
new investment) within the station’s catchment for bicyclists
and pedestrians. Tis makes removing constraints on the
UCUC’s bicycle and pedestrian network, and particularly it’s
failing spine – the Burke-Gilman Trail – the UCUC’s highest
priority.
• ECONOMICALLY DISADVANTAGED
POPULATIONS: 31% OF UCUC POPULATION LIVES
BELOW THE POVERTY LINE.
• NON-DRIVERS: NEARLY 50% OF ALL UW STUDENTS
AND 23% OF UNIVERSITY AREA RESIDENTS DO NOT OWN A
VEHICLE.
• SENIORS: OVER 68,000 SENIORS LIVE IN THE CITY OF
SEATTLE; THREE SEATTLE HOUSING AUTHORITY PROPERTIES
NEAR THE BGC HOUSE 87 LOW-INCOME SENIORS AND
ADULTS WITH DISABILITIES.
• PERSONS WITH DISABILITIES: NEARLY 1,100
STUDENTS WITH DISABILITIES ATTEND THE UW. THE BGC
ENHANCES THE SAFETY AND USABILITY OF THE TRAIL BY
IMPROVING ADA ACCESSIBILITY AT 10 LOCATIONS.
Joyce Yen works for UW Advance, Center for Institutional Change (http://
advance.washington.edu/), which focuses on increasing the participation
of women in STEM careers. She bikes with her daughter on the BGC to work
and to preschool.
Burke-Gilman Multimodal Connector TIGER Application 15
IV Response to Selection Criteria—A. Primary Criteria
Reducing our dependence on foreign oil
Increasing connections between walking, bicycling and
transit while promoting regional trip-making is central
to enabling car-free or car-light lifestyles, which directly
reduces dependence on oil. Te robust transit service to the
UCUC extends the bicycle and pedestrian network to all
regional employment and commercial centers and allows
complete trips to be made in oil-free modes, including light
rail trains and trolley busses fueled by the region’s abundant
hydroelectric power.
Improving air quality
With its adjacency to SR 520 and I-5 and excess emissions
from congested UCUC arterials, air quality is a signifcant
concern for UCUC residents. Walking, biking, and transit
trips enabled by the BGC pay double dividends for air quality
in that they both remove the emissions from trips shifed
to the active modes or transit and reduce delays for, and
emissions from, the remaining motor vehicles.
Reducing greenhouse gas emissions
Te BGC will increase participation in these low- and no-
free carbon commuting modes. Since 2000, the number of
individuals commuting to UW by bicycle has more than
doubled while pedestrian commuting has increased by 20%.
However, additional increases in walking and bicycling
trips – including those linked to transit trips – cannot be
accommodated on today’s Burke-Gilman Trail unless the BGC
is completed. Te project responds to increased demand for
more sustainable transportation choices with an accessible,
quality, low carbon multi-modal corridor within one of
the largest urban centers in Seattle. Te BGC will further
stimulate growth in travel modes that generate fewer or
no greenhouse gas emissions and can reduce vehicle miles
traveled by better connecting the places we live, work, play
and learn and supporting dense and high quality land use.
Promoting public health
Te BGC supports signifcant public health benefts associated
with increased physical activity from walking and biking and
air quality improvements. According to the BCA, the BGC
provides over $2 million (7% discount rate) in community
health benefts over the next 20 years (over $3 million
at a 3% discount rate). Te BGC’s safety improvements,
including mode separation, grade separation, and intersection
improvements, will also pay immediate and long-term public
health dividends through reduced collision and injury rates.
In addition, the BGC directly improves access to two hospitals
and four clinics.
2. The BGC promotes afordable housing
The BGC promotes equitable, afordable housing
Te UCUC has signifcant economic and ethnic diversity with
a mix of public housing, market-rate multifamily housing and
single family homes. Tere is also signifcant age diversity in
the UCUC and on the BGC as well; a senior-housing facility
sits at one end of the BGC, and just down the trail are UW
residence halls, a preschool and a mature neighborhood of
single-family homes. Transportation investments in the UCUC,
including completion of the BGC, are stimulating housing
growth as 2,438 new units are expected to come on line by
2017. With unbundled parking and reduced parking demand
and construction costs, these added units help mitigate the
natural increase in housing costs. Te diversity of the UCUC
helps make the BGC an outstanding investment in afordability
and equity.
Creating location efciency
With the region’s third largest employer, largest academic
institution, six grocery stores, a year-round farmers’ market,
16 libraries, two museums, two botanical gardens, six
performing arts venues, countless restaurants and six medical
facilities all located in the UCUC, this area represents one
of the most location-efcient living options imaginable.
Trough local mobility options like the BGC, residents of
the UCUC have access to opportunities to live, work, learn
and play. Tis efciency is particularly critical for the senior
NEW HOUSING INVESTMENT IN THE UCUC
• TODAY NEARLY 6,500 STUDENTS LIVE IN UNIVERSITY HOUSING AND ANOTHER 2,500 BEDS (A 38% INCREASE IN HOUSING FACILITIES) WILL BE
ADDED IN WEST CAMPUS BY 2015, AT THE BGC’S WESTERN TERMINUS.
• SEATTLE CHILDREN’S HOSPITAL AND THE UW ARE PARTNERING TO BUILD A 180-UNIT RESIDENTIAL DEVELOPMENT. EMPLOYEES OF CHILDREN’S
AND THE UW WILL HAVE PRIORITY FOR THE UNITS, PROVIDING ECONOMICAL HOUSING CLOSE TO WORK FOR PEOPLE WHO MIGHT NOT BE ABLE TO
AFFORD IN-CITY RENTS.
• VULCAN INC. IS PLANNING A NEW 212-UNIT, SEVEN-STORY APARTMENT BUILDING IN THE UCUC, WHICH WILL HOUSE ABOUT 300 TO 350
RESIDENTS.
• AVALON BAY HAS CONSTRUCTED A 284-UNIT PRIVATE APARTMENT DEVELOPMENT NEAR THE FUTURE U-DISTRICT LINK LIGHT RAIL STATION,
WITH EASY CONNECTIVITY TO THE BGC. THE BUILDING INCLUDES ENERGY EFFICIENCY FEATURES AND AN AFFORDABLE HOUSING PROGRAM.
16 Burke-Gilman Multimodal Connector TIGER Application
IV Response to Selection Criteria—A. Primary Criteria
residents of Seattle Housing Authority’s property on the
Burke-Gilman Trail, nearby student-family housing and
the 31% of UCUC residents living below the poverty line.
Seattle’s Comprehensive Plan (http://goo.gl/ceDDN) calls for
a 33% increase in household density and a 19% increase in
employment density in the UCUC over the 20 year planning
window, further increasing the opportunities for location
efcient living and the urgency of investing in the UCUC’s
active transportation options and transit connections. Te
premise of location efciency assumes walkable, bikeable
neighborhoods and the BGC removes the primary constraint
for achieving this in the UCUC by addressing the failing
infrastructure of its primary active transportation corridor.
Expanding energy efcient housing choices
One indicator of housing energy efciency is recognition by
the US Green Building Council’s LEED rating program. More
than $850 million of the $1 billion in housing investment
within three blocks of the BGC is designed to meet or exceed
LEED Silver. At the leading edge of this investment are UW’s
new residence halls, which include innovative energy-saving
features, such as providing residents with real-time feedback
on energy consumption on a room-by-room basis. Te age
of housing facilities is another indicator for energy efciency,
with modern construction practices and materials ofering
signifcant energy advantages. Te densifcation of the UCUC,
enabled by projects like the BGC and the transit it supports,
is contributing to a renewal of housing stock that will
improve home energy efciency and provide energy efcient
transportation options.
3. The BGC promotes economic
competitiveness
As outlined in detail in Economic Competitiveness, the BGC
provides reliable and timely access to the incredible array of
employment, education, and services in the UCUC. More
than 230 businesses and 34,000 jobs are located in the UCUC,
and the UW hosts over 43,000 students in addition to over
4,200 working adults in professional certifcate programs.
Te BGC is a highly efective Ladder of Opportunity that
will connect working class families to opportunities for
employment and for developing the job skills that will allow
them to advance their careers.
Te area surrounding the UW is home to hundreds of
small and independent businesses and has been identifed by
the City of Seattle as a new hub of innovation technology and
job creation. Te City of Seattle is aiming to nearly double
the jobs in the “University District Northwest,” the business
district adjacent to the UW campus, by 2035. A new Urban
Design Framework and new zoning are also planned to
support a thriving commercial district, encourage new jobs
and businesses, create public space, integrate transportation,
and sustain the environment.
Services in the UCUC
Tere is a comprehensive network of of community, health,
and social services in the UCUC, serving all populations with
a special emphasis on youth.
Te University Heights Center provides a “town hall” to
the UCUC and a place for children and adults to assemble,
recreate, play, learn, and grow, with programs including
volunteer days, community cleanups, literacy programs, art
education, ftness classes, and children’s theater
Te thirty-year-old University District Food Bank serves
1,100 needy families each week and is undergoing a $3
million expansion to enable it to serve 33% more customers.
Te expanded food bank will be part of the new University
Commons, scheduled to open in Summer 2015, which will
provide low-cost housing along with spaces for life and job
skills training.
Tere are a variety of services for at-risk youth in the
UCUC. Seattle Education Access provides higher education
advocacy and opportunity to young people struggling to
overcome poverty and adversity, including academic advising,
tutoring, scholarships, and career counseling. Street Youth
Ministries serves homeless and at-risk youth with a drop-
in center, life skills training, case management, and other
activities. Teen Feed provides hot meals to 40-50 homeless
youth each night as well as support programs and internships.
Te University District Youth Center provides at-risk youth
Elisabeth McLaughlin is a full-time employee at UW and is a single mother
of two young children. She relies on the BGC not only to commute to work,
but to safely transport her children to childcare and school. Elisabeth and
her children beneft from the trail by reducing their transportation costs,
improving their health and using the trail as a recreational resource to
spend time together as a family.
Burke-Gilman Multimodal Connector TIGER Application 17
with a drop in center, case management, employment,
substance abuse counseling, and education. Te ROOTS
Young Adult Shelter served over 530 homeless young adults in
2012. Youth Care’s ISIS House provides transitional housing,
job training, and counseling to uniquely vulnerable homeless
LGBTQ youth, who are seven times as likely to be subject to
violence as their straight peers.
Medical services in the UCUC include care at the UW
Medical Center, with over 138,700 inpatient admissions
and 620,500 outpatient visits every year. Te UW School of
Dentistry provides general dentistry, specialties, and urgent
care services to the greater Seattle community, with more than
85,000 patient visits in Fiscal Year 2013 including over 11,000
Medicaid pediatric patients. Te dental school also delivered
care to over 3,500 patients with disabilities, of whom more
than 90 percent were on Medicaid.
Te BGC provides direct access to these critical community
services in the UCUC.
4. The BGC supports existing communities
Collaborative community planning
Te City has worked with community and business
stakeholders to develop the University District Partnership
(UDP). Trough the UDP, the UCUC is answering the call in
Seattle’s Comprehensive Plan for urban centers to “receive the
most substantial share of Seattle’s growth, consistent with their
role in shaping the regional growth pattern” and doing so in
a way that complements, rather than displaces the existing
neighborhood.
UW’s investment in the BGC is part of a long commitment
to a transportation strategy centered on walking, biking and
transit. Tat strategy has reduced UW’s drive-alone rate to just
20%, saved as much as $280 million in parking construction
costs and enabled the recycling of $73 million in land from
parking use to public facilities and open space.
Te UDP is leveraging the UW’s success in shifing travel
to low impact modes and the region’s investment in UCUC
transit infrastructure to recycle surface parking into mixed use
transit oriented development. In addition to private housing
development, the UW is in the process of constructing
2,500 additional beds by 2015 (an 38% increase) in an efort
to concentrate housing in mixed-use buildings proximate
to the UW and BGC. Tese transportation and housing
investments are the cornerstones of an efort to revitalize
the neighborhood by implementing land-use strategies that
promote walk-, bike- and transit-friendly neighborhoods.
All of this new housing stock sits within three blocks of the
Burke-Gilman and its success is predicated on construction of
the BGC and removing the constraint on the trail’s capacity.
5. Coordinate policies and leverage investment
The BGC synchronizes federal policies & investments
Te BGC builds on federal policy coordination in the
Partnership for Sustainable Communities by directly
supporting the Puget Sound Regional Council’s “Growing
Transit Communities” (GTC) initiative (http://goo.gl/1Be0U),
which is funded through a HUD Sustainable Communities
Regional Planning grant. GTC identifed that the
implementation approach most appropriate to the UCUC was
to “preserve, monitor and connect” and that the infrastructure
priority should be to “strengthen strategies to improve local
and regional transit access for commuters.” Te BGC directly
addresses both of these charges.
Te BGC maximizes the benefts associated with a variety
of federal and local partner investments in the area. By
IV Response to Selection Criteria—A. Primary Criteria
• EDUCATION: UNIVERSITY OF WASHINGTON, SERVING
OVER 43,000 STUDENTS
• TRAINING: 130 UW CERTIFICATE PROGRAMS IN 75
FIELDS OF STUDY, SERVING OVER 4,200 PEOPLE
• EMPLOYMENT: 27,000 UW JOBS, 34,000 UCUC
JOBS, 463 JOB-YEARS FROM BGC CONSTRUCTION, AND AN
ESTIMATED 4,100 NEW JOBS IN THE UCUC BY 2035
The Maple and Terry
Halls project includes
the demolition of the
existing 1101 Café
and Terry Hall, and
the construction of
two new residential
buildings named
Maple Hall and
Terry Hall. The two
new buildings will
total approximately
440,000 square feet,
with a target bed
count of 1,150 beds.
18 Burke-Gilman Multimodal Connector TIGER Application
IV Response to Selection Criteria—A. Primary Criteria
providing convenient and direct access to light rail transit,
the BGC leverages previous investments from Sound
Transit, FTA, the City of Seattle, WSDOT and Washington’s
taxpayers – including approximately $1 billion in federal
funding and nearly $8 billion in local funding – ensuring that
transportation in and around the UW works for everyone:
light rail and bus riders, bicyclists, pedestrians and motorists.
Investment in the BGC also supports access to employment
for the UW employees that conduct or enable $1 billion in
federally supported research each year.
Te UCUC is a regional target for growth and
development. By connecting light rail and regional trail
networks to the UCUC, the BGC makes a powerful
contribution to defned land-use and economic development
goals of the community, city, and region. In PSRC’s Growth
Management Plan (VISION 2040) and Metropolitan
Transportation Plan (Transportation 2040), and in the City
of Seattle Comprehensive Plan, the UCUC is a designated
center for growth. Te Seattle Department of Planning and
Development (DPD) is currently engaged in a rezoning
process in the UCUC as part of the implementation of this
goal. Te changes to zoning and urban design will allow the
district to achieve regional growth goals by doubling jobs and
increasing the number of households by more than a third
by 2035. A new public-private partnership in the heart of the
UCUC to create “Startup Hall” points towards the regional
aspiration for the UCUC to grow not only as a center for jobs
and education, but as a center for innovation, mirroring the
success of the South Lake Union area (Amazon, Path, Fred
Hutchinson Cancer Research Center).
Te BGC responds to calls for better access and circulation
in the UCUC. Growth, development, and an increase in
economic prosperity in the UCUC demands great access
for all modes, especially with light rail stations opening in
2016 and 2021. According to the DPD, Link light rail “will
fundamentally change the context of the U-District, leading
to substantial development over the next 15-20 years.” In
2013, the University District Livability Partnership released
a Strategic Plan for Seattle’s University District (the small-
business hub of the UCUC). Te plan identifed direct access
to the Burke-Gilman Trail as a feature that could be marketed
to enhance the neighborhood’s competitive edge. Te BGC
will dramatically increase the draw created by this facility. Te
BGC responds directly to transportation needs identifed in
the City of Seattle’s University Area Transportation Action
Strategy (2008).
6. The BGC values communities &
neighborhoods
Te UW and BGC project partners are deeply committed to
the health, safety and walkability of our community. As the
preeminent regional bicycle and pedestrian facility, the BGC
will attract thousands of people of all ages and abilities to
healthy transportation activities each day. Tis convenience
and reliability is further enhanced by the new open spaces,
seating areas and rest points created on the BGC that frame
views of Mt. Rainier, Lake Washington, Rainier Vista and Lake
Union – making the trail a destination in itself.
Te BGC looks beyond the facility’s capacity and focuses
heavily on enhancing neighborhood safety. Te innovative
design improves sightlines by squaring of intersections and
eliminating intrusive vegetation and concrete abutments.
Separating pedestrians and bicyclists onto dedicated trails
eliminates passing movements, thereby reducing conficts
between two modes with a large speed diferential. A refned
pedestrian-scale lighting palette reinforces the corridor’s 24-
hour nature by providing a well-lit transportation facility day
and night. A slew of signal and crossing improvements, trafc
calming and an underpass at a high-crash arterial intersection
will dramatically reduce collisions and injuries to pedestrians,
bicyclists and motorists alike. Where the trail intersects
high-volume paths, the BGC will feature a tabled bicycle trail
with tactile warnings to passively calm speeds. In addition to
preventative safety measures, the BGC will also expand the
number of emergency phones with broadcast capability to
alert trail users, residents and employees to emergencies.
It is important that the BGC be responsive to its unique
community. Consistent with the role of the UCUC as the
epicenter of innovation for the Pacifc Northwest, the
separately funded BGC public art and interpretive program
will celebrate innovation over UW’s 150-year history. Mixing
zones will be named for the prominent academic disciplines in
the region and at the UW, helping to better connect the BGC
to the campus and its rich past. Each mixing zone will feature
installations that identify and celebrate signifcant innovations
in the featured academic discipline that either originated at
the UW or with its regional partners. Te installations will be
incorporated into UW’s broader public art program, ensuring
ongoing stewardship.
The University District Street Fair is a regional event celebrating culture
and community. It is the longest running street fair in the United States
and attracts more than 150,000 attendees each year.
Burke-Gilman Multimodal Connector TIGER Application 19
IV Response to Selection Criteria—A. Primary Criteria
Environmental sustainability
Te BGC, by providing safe and reliable bicycle and
pedestrian infrastructure that is cutting edge in design, by
defnition improves energy efciency, reduces dependence
on oil, reduces greenhouse gas emissions, and addresses
stormwater naturally. Moreover, as a model project, the
BGC will demonstrate the efectiveness of an innovative
combination of trail treatments and will promote replication
of those treatments in other corridors, multiplying the
environmental benefts.
“Te improvements to the 1.7 mile section of the Burke-Gilman
Trail along the University of Washington will result in fewer
cars on adjacent roadways which will signifcantly reduce
trafc congestion and improve air quality in the area.” — Craig
Kenworth, Executive Director, Puget Sound Clean Air Agency
Reducing energy use and air/water pollution
Te BGC is one of the single most signifcant transportation
investments lef to be made on the UW Seattle campus
to reduce energy use, air pollution and water pollution
associated with vehicle transportation. Tis project builds on a
long legacy of nationally recognized environmental leadership
by the UW and the City of Seattle, including commitments
by both to aggressive Climate Action Plans (http://goo.
gl/2sA1um) and (http://goo.gl/2syFG) focused on achieving
carbon neutrality by 2050. Since 1989, single occupancy
vehicle travel mode share for UW’s population of nearly
70,000 people has declined from 33% to 20% due to aggressive
TDM and student and employee shifs to transit, walking and
bicycling. UW Seattle commuters emit 7,318 fewer metric
tons of CO2e per year as a result of UW’s transportation
demand management programs, of which the BGC is a critical
component. Since 2008, UW has reduced the vehicle miles
traveled per employee from 5.54 miles/day to 4.03 miles/day
– eliminating more than 40,000 daily vehicle-miles traveled
by UW employees alone. Moreover, the average UW Seattle
commuter emits 57% less CO2e than commuters of other large
employers in King County, contributing to a decrease in CO2e
emissions to nearly 11% from 2008 to 2012.
Since 2000, the number of individuals commuting to UW
by bicycle has more than doubled and pedestrian commuting
has increased by 20%. In 2012, nearly 20,000 daily commuters
walked or bicycled to campus. However, additional increases
in walking and bicycling trips – including those linked to
transit trips – cannot be accommodated on today’s Burke-
Gilman Trail unless the BGC is rapidly implemented
In addition to furthering the UW’s aggressive goals for
reducing the environmental impacts of student, faculty, and
staf commuting, more than 50% of current trail volumes
and as much as 75% of future trail volumes are unafliated
with the UW. With TIGER funds leveraging a signifcant
UW investment in a regional transportation asset, the
environmental benefts will be far above those attributable to
changes in travel by University-afliated individuals alone.
Avoid adverse environmental impacts
Tis project responds to increased demand for more
sustainable transportation choices with an accessible, quality,
low carbon multimodal corridor within one of the largest
urban centers in Seattle. Te BGC will further stimulate
growth in travel modes that generate fewer or no greenhouse
gas emissions and will reduce vehicle miles traveled by
shortening travel distances and better connecting the places
we live, work and play. Te monetized beneft of lower
congestion and emissions is between $335,000 and $577,000
over the life of the project. By increasing capacity for travel
by foot and bicycle and facilitating improved connections to
transit, the BGC reduces the amount of impermeable surface
required for motor vehicle travel and the associated pollutants
that make their way into project adjacent waterways,
including Ravenna Creek, Lake Washington, and Lake Union.
Tese waterways are critical components of the regional
salmon fshery in addition to supporting a host of other
wildlife, recreational activity, and commerce.
Provide environmental benefts
Te BGC not only avoids impacts but it will directly mitigate
existing impacts by deliberately addressing stormwater along
the trail corridor. Te stormwater management approach for
the length of the trail is guided by the overarching principle
to treat and manage runof locally where both meaningful
and feasible using the best practices available. Along both
the western and eastern segments, stormwater planting areas
are designed in key locations to slow down and cleanse water
before it enters the stormwater system, as well as allowing
runof to maintain its current overland fow trajectory in areas
where slopes are too steep for retention. Te most signifcant
intervention occurs at the Pend Oreille undercrossing where
the runof from Pend Oreille Rd. will be harvested. Trough
this treatment, polluted stormwater originating outside of
the project boundary will be slowed and cleansed before it
reconnects to the stormwater system and fnally exits into
neighboring Lake Washington.
REDUCED EMISSIONS FROM BGC BY 2020
• 20 MILLION POUNDS OF CARBON DIOXIDE
• 685 THOUSAND POUND OF CARBON MONOXIDE
• 52 THOUSAND POUNDS OF NITROUS OXIDES
• 75 THOUSAND POUNDS OF HYDROCARBONS
20 Burke-Gilman Multimodal Connector TIGER Application
IV Response to Selection Criteria—A. Primary Criteria
Te Burke-Gilman Trail passes through several distinct
habitats during its 1.7 mile journey through campus,
including an arching native tree canopy, eddies of open space
and lush public gardens, and more industrial open spaces.
Bicycling or walking on the trail provides users with an
opportunity to experience nature amidst an urban enclave.
“As a region, we recognize that supporting and prioritizing
viable, alternative modes of transportation (such as walking
and cycling) is a critical component of sustainable land use
planning.” — Kerry Nicholson, Chair, Urban Land Institute
Northwest
Te UW is committed to environmentally sustainable
landscapes throughout its campus and the BGC corridor.
In February 2011, the UW was certifed as Salmon-Safe,
becoming the largest Salmon-Safe certifed institution in the
state. Te award recognized the UW’s years of hard work to
put in place practices that contribute to salmon protection,
including a campus-wide stormwater management program,
innovative irrigation systems, and commitments to drought
tolerant landscaping and integrated pest management.
As part of the BGC, the UW will preserve mature and
specimen trees wherever possible. Corridor planting design
will be rooted in the particulars of the Pacifc Northwest
landscape, with site-specifc, regionally appropriate and
climate-adaptive plantings that require minimal maintenance
and pose no risk to pedestrians and bicyclists. Invasive plants
will be purged, allowing native pioneer species to thrive. Trail-
adjacent open space will be embraced in an environmentally
sensitive design that maintains signifcant trees while thinning
the dense understory to improve sightlines for pedestrians
and bicyclists on the trail.
Improved resilience
Continued investment in the BGC represents a longstanding
commitment to resilient and sustainable infrastructure and
truly multimodal transportation systems. Modernizing the
BGC lengthens the lifespan of an important low-impact
connector through the use of durable surface and subgrade
materials. Te upgrade recognizes the increase in future
demand, and cultivates new users through attractive, long-
lasting facilities.
By reducing the need for automobile trafc, the BGC
supports UW mode-shif goals as part of a resilient and
multimodal transportation network. By enabling more
people to commute by green transportation modes, UW has
avoided building 7,200 new parking space and eliminated the
need for more pavement. Unlike automobile trafc, which
is susceptible to gridlock and reliant on fossil fuels, trail
trafc is carbon-neutral and includes a mix of speeds and
conveyances. Te BGC’s adjacency to arterial corridors and
highway bottlenecks ofers a prominently visible reminder of
the safe, comfortable, and convenient pedestrian and bicycle
alternatives to SOV travel.
Safety
Reduce collisions
Te BGC improvements will signifcantly improve the
safety of all bicycle and pedestrian users of the trail, and
the vehicles that intersect throughout. In the past decade,
71 collisions involving pedestrians, bicyclists and motorists
have been reported along UW’s 1.7 mile segment of the
Burke-Gilman Trail. Te highest concentrations of collisions
have occurred where the trail cuts through four major
arterials. Tese collisions have resulted in 45 injuries caused
by poor sightlines, failing intersection design and outdated
signalization. Within the same 10-year timeframe, 14 accident
reports have been fled through UW’s Online Accident-
Reporting System due to injuries attributable to the poor
physical condition or trafc of the trail. If asked, any user of
the trail will report countless near misses. Te actual number
of collisions is widely believed to be signifcantly higher than
the number of reported collisions.
“Last summer, I saw a biker get hit by a car in the intersection
of the trail and Brooklyn Ave. While it is important for cyclists
to be aware of cars when they are on the streets, intersections
like this one make me not want to use the trail for fear of my
own safety.” — Jessica Tompson, trail user
Te BGC will signifcantly reduce the risk of collisions,
injuries and fatalities at arterials by improving intersection
design in several important ways:
• Sightlines will be improved by squaring intersections,
creating more generous queuing space and eliminating
visual obstructions like invasive vegetation and drastic
grade changes.
• Te mid-block crossing at Brooklyn Ave NE will be
raised and realigned to improve vertical sightlines and
slow approaching arterial trafc. Right of way will be
reassigned to prioritize the greater volume of trafc on
the trail as compared to the street.
• Signal phases with parallel arterials will be separated
and reinforced with “No Right On Red” to prevent
frequent right hooks that occur as vehicles turn north
of of NE Pacifc St.
• Two signalized perpendicular arterials will receive “No
Right On Red” treatments to prevent cars from queuing
in the trail crossing as they prepare to turn west onto
NE Pacifc St.
Where the BGC intersects other high-volume paths, a suite
of design treatments will minimize conficts between bicyclists
and pedestrians traveling along and across the trail. Safety
improvements will include tabling the BGC’s bicycle path to
Burke-Gilman Multimodal Connector TIGER Application 21
IV Response to Selection Criteria—A. Primary Criteria
passively calm speeds, opening up sightlines by removing
adjacent invasive vegetation and concrete abutments, and
installing visual and tactile warning strips at intersection
approaches.
Eliminate at-grade crossing
Te BGC’s most intensive intervention is the grade separation
of the trail crossing at Pend Oreille Rd. Tis poorly aligned
mid-hill intersection is the site of frequent near misses and
collisions, as trail users and motorists either do not see one
another or misread one another’s intentions. Anticipated
changes to bus transit routing and private vehicle circulation
will only increase the volume of trafc at this already
dangerous crossing.
Te design of the undercrossing of Pend Oreille Rd. takes
advantage of the existing grades to preserve a sense of openness
and light, minimizing the length of the actual underpass while
allowing for gradual transitions within ADA guidelines.
In addition to the underpass itself, the BGC will provide
new spur connections to the intersection of Pend Oreille Rd.
and 25
th
Avenue NE, a key arterial and desire line connecting
the trail and light rail station to the nearby University Village,
one of the nation’s most productive retail complexes.
A new connection to westbound Pend Oreille Rd. is also
provided, improving the ability of trail users to safely and
efciently access the University’s north campus.
“I was hit by a car traveling into campus at the intersection
of Pend Oreille Rd. Tis was afer I had stopped at the stop-
sign and been waved on by a stopped car traveling the other
direction. Riding the Burke-Gilman Trail should be safer than
riding on the road, not the inverse!” — Sam Cook, trail user
Foster a safe multimodal transportation
system
Upon project completion, the BGC will be elevated to one of
the safest transportation facilities in the region, serving some
of the most vulnerable transportation users. Te BGC is at
the confuence of 175 miles of regional trails and 18.7 miles
of light rail that will be open in 2016, with 18.3 additional
miles of light rail opening within the following seven years.
By resolving the safety concerns plaguing the current trail,
the BGC will strengthen the safety performance of this entire
multimodal transportation system. Not only will injuries
be prevented, but the BGC will open up new opportunities
for active transportation – directly combating several of our
biggest national public health crises including obesity and its
associated diseases, urban air pollution, and global climate
change.
Enhance public safety
Te BGC is designed employing the principles of crime
prevention through environmental design. Where vegetation
has created pockets that invite illicit activity, visibility to
adjacent trafc will be improved. Lighting is improved
throughout the corridor and the number of emergency
phones with broadcast capability located along the trail
will increase from fve to ten, allowing both calls for help
and public alerts in the case of emergent situations. Data
infrastructure will also be included to accommodate the
possibility of video cameras throughout the corridor.
The vision for an
uninterrupted, car-
free corridor along
the east segment of
the BGC hinges on
building an underpass
at the Pend Oreille
crossing. Dangerous,
trafc-congested
intersections like
Pend Oreille fragment
the Trail and pose
a challenge to
walkers, runners,
cyclists, and skaters
trying to cross. The
new underpass will
increase fuidity for
all users, encourage
safe commuting and
recreational use of
the trail, improve
access for wheelchair
users, and promote
carbon-free modes of
transportation.
22 Burke-Gilman Multimodal Connector TIGER Application
Innovation
Technology & design innovation
Te design of world-class walking and bicycling
transportation corridors is a nascent discipline in the United
States. Te BGC will establish a new archetype afer which
future urban trails will be modeled nationwide.
• Te combination of vertical and horizontal separation
between pedestrian and bicycle paths represents an
elegant design innovation that improves trafc fow,
minimizes collision risk and creates a level of user
safety, comfort and enjoyment that is not possible on
traditional mixed-use transportation trails.
• Te implementation of mixing zones that utilize visual
and tactile cues, as well as speed tables that passively
calm bicycle speeds at intersections, also represent
cutting-edge treatments for pedestrian and bicycle
transportation facilities.
• Signal enhancements and grade separation at major
arterials – including separate trail signal phases and
a daylit trail undercrossing – are treatments at the
forefront of trail design best practices.
Tese design innovations will be coupled with unprecedented
in-depth research into trail usage.
• In partnership with Rails to Trails Conservancy,
University of Minnesota and UW, researchers will
deploy a series of pedestrian and bicycle infrared and
inductive loop sensors pre- and post-construction.
• Over a 12-month study period, data collected along
the BGC will be used to develop predictive demand
models for trail usage nationwide, taking into account
seasonality, weekly trafc patterns, and adjacent
demographics and land uses.
Tis forecasting tool based on rigorous data collection, will
allow engineers, planners and other decision-makers across
the nation to locate, design and build trails to optimize
performance and maximize return on trail investments.
“With this project, the UW is once again taking an
extraordinary leadership position. Te suite of innovative
treatments they will demonstrate will show our industry how
to efectively reconcile the conficts inherent in the high volumes
of both bicycles and pedestrians and the complex web of desire
lines in a campus environment. We expect this project to become
a new national model for urban, mixed-use trails. We are
excited by the example this sets and expect that it will spur other
communities and universities to collaborate on a regional scale.”
— Transportation leaders from 38 universities and colleges
IV Response to Selection Criteria—B. Secondary Criteria
IN 2013, THE PLACE DESIGN STUDIO RECEIVED A MERIT
AWARD FROM THE OREGON CHAPTER OF THE PRESTIGIOUS
AMERICAN SOCIETY OF LANDSCAPE ARCHITIECTS (ASLA) FOR
ANALYSIS AND PLANNING FOR THIS PROJECT
The BGC’s innovative combination of vertical and horizontal separation
between pedestrian and bike paths, improves trafc fow, minimizes
collisions and creates user safety, comfort and enjoyment. Mixing zones
will use visual and tactile clues to calm bicycle speeds at intersections.
Landing areas allow pedestrians to pause and look for conficts before
crossing the line of travel.
Burke-Gilman Multimodal Connector TIGER Application 23
IV Response to Selection Criteria—B. Secondary Criteria
Funding & fnancing innovation
Te BGC taps transportation infrastructure investment from
a nontraditional source, the University of Washington, for a
regional transportation asset – freeing regional transportation
dollars for other projects. Additionally, the UW is tapping
a non-traditional revenue stream (parking fne revenue) to
fund trail redevelopment and another non-traditional revenue
stream (utility easements) for operations and maintenance.
Te BGC has assembled a fnancing package that speaks
to the diversity and support of its funding partners, including
fnancial and in-kind contributions from the Puget Sound
Regional Council, Rails to Trails Conservancy, Seattle
Children’s Hospital, City of Seattle and King County Metro. By
utilizing innovative funding approaches, the BGC is superbly
positioned to maximize a TIGER 2014 award as the last-
dollar-in on the project’s fnancing package.
Management innovation
Te BGC leverages mode separation as an innovative
congestion management and safety strategy. Innovative
intersection treatments with generous mixing zones that use
visual and tactile cues to manage speeds and traveler behavior
further improve safety. Te BGC also adopts an innovative
asset management strategy, employing new root barrier
technology developed on-site at the UW.
Coordinated investments increase impact
Not only would a TIGER 2014 award serve as last-dollar-in on
the BGC, it would also serve the regionally signifcant function
of expediting the project’s completion. Te new University of
Washington Link light rail station opens in 2016 and other
major adjacent projects will be completed in a similar time
frame, such as the new SR 520 multi-use trail and construction
of 2,500 new housing units within one block of the BGC. Te
success of these projects depends greatly on a functioning trail
and expediting the BGC would provide just that.
A closely related beneft of expediting the project’s
completion is consolidating construction, detours and other
impacts to trail users into a single window of time. Te UW
is poised to begin construction on Phase One of the BGC
(15th Ave NE to Rainier Vista East, funded through CMAQ
and the UW) in May 2014. A TIGER 2014 award would
allow this piece and all remaining segments of the BGC
to be constructed as rolling phases and completed before
the opening of light rail in 2016. However, absent a TIGER
2014 award, construction will proceed in discrete segments
of work as funds are secured. Tat will result in additional
mobilization costs, and require numerous detours – extending
disruption of a vital transportation corridor and pushing
project completion well out beyond the opening of light rail.
Partnerships
Te BGC is the result of regional vision and collaboration.
It has been envisioned and supported by the state, region,
city, university community, transit users, businesses and
thousands of pedestrians and bicyclists who use the regional
trail network anchored by the Burke-Gilman Trail. Tis
project is at a critical infrastructure crossroads for the entire
region – when completed it will unlock the potential of all the
up-coming investments carefully designed so our region can
grow and thrive.
Jurisdictional & stakeholder collaboration
Regional partnerships
Te BGC is the outcome of a robust regional planning process
that has spanned almost two decades.
• 1996: Light rail linking the Seattle central business
district and the UW was included in Sound Transit’s
frst package of transit investments approved by voters
in 1996, in large part for its connectivity to the UW and
to the regional Burke-Gilman Trail.
• 2008: Following direction from the Washington State
Legislature (ESSB 6099), the UW, WSDOT, Sound Transit
and King County Metro Transit developed a SR 520 High
Capacity Transit Plan (http://goo.gl/W2fXB) which
included key components of the Montlake Multi-Modal
Center, the “connector” between Light Rail and the BGC.
• 2010: WSDOT and FHWA announced the preferred
alternative for the SR 520 replacement and HOV Project,
assuming connection to the BGC.
• 2010: WSDOT was directed through Senate Bill
6392 (http://goo.gl/s0B9N) to study and make
recommendations for alternate connections to transit in
the Montlake area.
• 2010: Te Washington State Legislature directed WSDOT
to refne designs for SR 520 and the multimodal hub
at the Montlake Triangle, connecting SR 520 and light
rail to the BGC. Tis included a charrette process with
several partner agencies, including the UW (Department
of Regional Afairs, Architectural Committee and Board
of Regents), WSDOT, King County Metro Transit,
Sound Transit and the City of Seattle (Department of
Transportation, Seattle Design Commission, Seattle
City Council, and briefngs with Seattle Pedestrian
Advisory Board and Seattle Bicycle Advisory Board).
Te groups worked together to evaluate options for
improving pedestrian connections and bus and bicycle/
trail facilities. Tis work led to a shared understanding
and regional vision for the BGC.
• 2010: Te UW initiated a study to assess the BGC’s state
of repair and ability to sustain expected travel volumes
anticipated in the Montlake Triangle charrette, Sound
Transit ridership projections, Puget Sound Regional
24 Burke-Gilman Multimodal Connector TIGER Application
IV Response to Selection Criteria—B. Secondary Criteria
Council’s (PSRC) growth projections for the UCUC,
and City of Seattle and UW mode shif projections.
Input from community presentations confrmed the
observable failing condition and, combined with growth
projections, guided the development of the corridor
Concept Plan (http://goo.gl/0jYVL).
• 2011: WSDOT, Sound Transit and the UW executed
a formal agreement for the Montlake Triangle
recommending widening the BGC (http://goo.gl/EyJ6J).
• 2011: UW initiated a corridor planning and design
process. Local nonprofts including Cascade Bicycle
Club, Commute Seattle, Feet First, the Bicycle Alliance
of Washington, Friends of the Burke-Gilman Trail,
university-area community councils, individual
businesses, the University District Chamber of
Commerce, Northeast District Council, the City’s
Bicycle and Pedestrian Advisory Boards, and others
were engaged. Public input was married with expert
counsel from agency partners SDOT, King County
Metro Transit and Sound Transit (http://goo.gl/dkmCb).
• 2011: City of Seattle directed its Ofce of Economic
Development to invest in UCUC neighborhood business
district revitalization.
• 2013: City of Seattle’s Economic Development
Commission designated the UCUC as the next great
neighborhood where innovation and socioeconomic
opportunities can grow in partnership with the UW.
Funding partnerships
Te BGC is being funded through strong partnership and has
the following non-federal funding contributions in addition to
funds from the UW:
• Seattle City Light’s acquisition and installation of a
new high capacity duct bank and sequencing work will
reduce trail construction costs.
• Seattle Children’s Hospital is providing $120,000 to
support construction of transit connections.
• Rails to Trails Conservancy is contributing an
estimated $40,000 in technology to enable performance
measurement and research associated with the
improvements and adjacent changes to the regional
transportation infrastructure.
• King County Metro Transit is providing an estimated
$25,000 in street furnishings and transit plaza amenities.
• SDOT is providing construction easements and
signalization support with an estimated value of
$100,000.
Regional support
Te entire Puget Sound region has come together for the
delivery of this important project. Senators Patty Murray
and Maria Cantwell, many members of Washington’s
congressional delegation, Governor Jay Inslee and 22 state
legislators, the King County Executive and Council, the Seattle
Mayor and Seattle City Council, and other regional cities are
prioritizing this project.
Tis leadership is complemented by unprecedented
community support from environmental and labor
organizations, local community groups and the business
community. Groups that support livable communities and
environmental protection, such as Transportation Choices
Coalition, Puget Sound Clean Air Agency, the Stockholm
Environmental Institute, the Urban Land Institute, Public
Health Seattle and King County, Cascade Bicycle Club and
countless others are all devoting time and energy to ensure
that this project is successful.
Tese groups are joined by economic drivers in our
community, including the University Village (121 businesses),
the University District Partnership (130 businesses), the
Greater Seattle Chamber of Commerce (2,200 businesses),
the Downtown Seattle Association, REI, Vulcan Inc., Wells
Fargo, Microsof and many others. What is most compelling,
and is the greatest testimonial, is the 7,000 and growing list of
individual supporters who have taken the time to write in to
support these eforts.
Te Seattle Ofce of Economic Development has invested
$800,000 over three years to revitalize the UCUC and
reinvigorate its neighborhood chamber with the intention of
priming the neighborhood for near-term growth. In 2013, this
investment resulted in the launch of a larger, more inclusive
business and community organization that efectively marries
social, economic, and community interests for the betterment
of the district.
Te strong show of support from the region is a
demonstration of the importance of this project and the
remarkable breadth and cohesiveness of the somewhat
unlikely partnerships that have formed around it.
Disciplinary integration
Te BGC is part of a broader vision for regional growth,
implementing and signifcantly supporting elements of the
region’s economic development plans, housing development
eforts, land-use plans and policies, diverse partnerships, and
sustainable community plans as discussed throughout this
application. Its completion unites small businesses looking for
customers, employers looking for workers, employees who are
accessing training and jobs, and the greater communities.
Sustainable communities
Te Puget Sound region was designated a Preferred Sustainable
Community by the U.S. Department of Housing and Urban
Development and was awarded a $5 million Sustainable
Communities Regional Planning grant in 2010. Tis funding
is being used to develop the Equity Network, a regional
Transit Oriented Development vision, Transit Corridor Action
Strategies, afordable housing planning and other programs
Burke-Gilman Multimodal Connector TIGER Application 25
IV Response to Selection Criteria—B. Secondary Criteria
that will beneft areas around light rail stations. UW is a project
partner for this grant.
Te PSRC’s Growth Management Plan (VISION 2040
http://goo.gl/kW92T) and Metropolitan Transportation
Plan (Transportation 2040 http://goo.gl/ug8qD) focus
growth (people and jobs) in designated centers to improve
transportation efciency – including increasing the use
of transit, biking and walking, and improving the balance
between jobs and housing. Te UCUC is a designated center
with an estimated employment of 32,500. Te UW alone
has nearly 27,000 faculty and staf and 43,000 students in
the UCUC. Te BGC will directly encourage transportation
energy efciency and improve the environment, as well as
support economic development in the UCUC.
Seattle Bicycle Master Plan
Te City of Seattle Bicycle Master Plan (BMP) (http://goo.
gl/bL7Lp) was adopted in 2007, updated in April 2014, and
is the blueprint for making improvements to Seattle’s bicycle
network. Te stated goal is to triple the amount of bicycling
in Seattle between 2007 and 2017. Te BGC is among the
single most signifcant investments that can be made to
realize this goal.
Seattle Pedestrian Master Plan
Te City of Seattle Pedestrian Master Plan (PMP) (http://goo.
gl/CyeJR) is a long-term action plan to make Seattle the most
walkable city in the nation. Te plan establishes the policies,
programs, design criteria and projects that will further
enhance pedestrian safety, comfort and access in all of Seattle’s
neighborhoods. Trough the PMP, Seattle strives to make its
transportation system more environmentally, economically
and socially sustainable. Te BGC will create a facility that
is truly welcoming for pedestrians of all ages and abilities to
meet their transportation and physical activity needs.
University Area Transportation Action Strategy (UATAS)
In 2008 the City of Seattle completed a broadly-based
collaborative planning process that identifed the most urgent
projects in the UCUC and the principles, questions and
concepts that would guide future planning. Te BGC directly
incorporates solutions from, and ofers additional solutions to
problems identifed in, the UATAS (http://goo.gl/WnC8i).
Seattle Housing Authority (SHA)
Te largest local provider of low-income housing assistance,
SHA located three of their properties in proximity to the
Burke-Gilman Trail to ensure that their senior tenants, who
rely primarily on walking for transportation, have access to
local amenities in a safe walkable environment. SHA, in its
2011-2015 Strategic Plan (http://goo.gl/vr5bK) prioritized
assisting housing participants in gaining access to education
and employment opportunities so they can improve their
lives. Te BGC will greatly enhance the safety and comfort of
seniors as they access the services, education and employment
opportunities in the neighborhood.
University District Livability Partnership (UDLP)
In January 2013, the UDLP released the Strategic Plan for
Seattle’s University District, (http://goo.gl/t9DVR) funded
through the Ofce of Economic Development, as part of the
Only In Seattle neighborhood business district revitalization
initiative. Tis is the result of more than four years of
stakeholder participation and meetings. Te plan identifed
direct access to the Trail as a marketable feature to enhance
the neighborhood’s competitive edge.
King County Strategic Plan for Public Transportation
In July of 2011, King County Metro Transit adopted a 20-
year strategic plan for public transportation committing King
County Metro to supporting bicycle and pedestrian access
to jobs, services and the transit system as a key strategy for
efciently extending the reach of the transit system and
supporting economic growth. Tis plan also aims to reduce
greenhouse gas emissions by shifing single-occupant drivers
to other modes. Te BGC is an essential tool for achieving
both of these countywide goals over the next 20 years (http://
goo.gl/vBasP).
Puget Sound Bike Share
In September 2014 Puget Sound Bike Share, a public/private
partnership, will be launching 50 new bike share stations with
500 bikes in the four densest core neighborhoods in Seattle –
including the UCUC. With multiple bike share stations near
the BGC and the UCUC’s two light rail stations, the BGC
will provide a critical protected facility for the thousands
of occasional cyclists that will use bike share to extend
the transit network, provide midday mobility, and enjoy
recreational riding.
“Tree bike share stations are planned adjacent to the trail,
providing public access to bikes along a safe and convenient
route to employment, education, retail, entertainment and
services.” — Holly Hauser, Executive Director, Puget Sound
Bike Share
26 Burke-Gilman Multimodal Connector TIGER Application
IV Response to Selection Criteria—C. Results of Beneft-Cost Analysis
Beneft-cost analysis
summary
Long-term quantitative
benefts
Te BGC represents a critical
opportunity to convert a deteriorating
and over-capacity bicycle and pedestrian
corridor into a safe, accessible and
multimodal transportation facility that
will connect existing and future users
to active and sustainable transportation
options using innovative design. Tis
table presents a summary of benefts and
costs for the BGC, which is estimated to
provide $28.1 million to $67.5 million
in net benefts assuming 7% and 3%
discount rates, respectively.
1
Job creation
In addition to the long-term benefts
described above, the BGC also results
in considerable short-term job creation.
Based on a near-term economic impacts
analysis utilizing IMPLAN, the BGC
creates 463 job-years, including 293
direct/indirect job-years and 170
induced job-years.
SUMMARY OF BENEFITS AND COSTS (20 year horizon)
7% discount rate 3% discount rate
Benefts (2013$)
Environmental
Reduced Auto Use $335,400 $577,400
Social
Annual Health Benefts $2,205,700 $3,770,400
Commuter Mobility (bicyclists) $19,473,400 $35,981,300
Commuter Mobility (pedestrians) $906,400 $1,393,700
Recreation $23,542,700 $39,765,500
Economic
Travel Time Savings (bicyclists) $3,880,500 $6,696,100
Travel Time Savings (bus passengers) $749,700 $1,262,000
Travel Time Savings (automobiles) $583,800 $982,900
Total Benefts (2013$) $51,677,600 $90,429,300
Costs (2013$)
Capital $25,327,200 $27,095,700
O&M $119,100 $180,400
Rehabilitation Costs $316,600 $605,000
Residual Value $(2,148,600) $(4,967,900)
Total Costs (2013$) $23,614,300 $22,913,200
NPV of Net Benefts (2013$) $28,063,300 $67,516,100
B/C (ratio) 2.19 3.95
1
Te demand forecasting process for this
analysis used peak period counts of bicycle and
pedestrian volumes and applied seasonality
based on data from several bike facilities in
the area and in the Pacifc Northwest. Without
improvement, it was assumed that pedestrians
continue to use the facility and eventually begin
to crowd out bicyclists during peak periods.
Tese bicyclists who are crowded out become
new facility users under the build scenario,
with benefts applied because they would
otherwise not be on the facility. By separating
bicycle and pedestrian modes, the new facility
considerably increases the capacity of the
Burke-Gilman Trail.
361
102
2014 2015
400
350
300
250
200
150
100
50
0
Indirect Employment Induced Employment
Jobs created by the BGT
Burke-Gilman Multimodal Connector TIGER Application 27
IV Response to Selection Criteria—C. Results of Beneft-Cost Analysis
Additional long-term benefts
A number of long-term benefts associated with the BGC are
omitted from the quantitative analysis detailed above, but
nevertheless include substantial qualitative benefts in terms
of safety, environmental sustainability and livability.
Te National Cooperative Highway Research Program
(NCHRP) Report 552, Guidelines for Analysis of Investments
in Bicycle Facilities, recommends against monetizing the
reduction of accidents in the beneft-cost analysis. However,
the BGC’s safety improvements are unquestionable and will
contribute to a much safer experience for trail users and
drivers on intersecting arterials. Poor intersection design
throughout the trail has led to over 70 reported collisions and
45 injured pedestrians, bicyclists and motorists in the past
10 years. Te BGC drastically improves these fawed designs
and will create a much safer transportation network and user
experience.
Per NCHRP Guidelines, this analysis attributes $.06 in cost
savings (2013$) due to reduced emissions for each bicycle mile
traveled in lieu of auto use. A separate analysis demonstrates
that the BGC results in reductions of approximately 20 million
pounds of carbon dioxide, 685 thousand pounds of carbon
monoxide, 52 thousand pounds of nitrous oxides, and 75
thousand pounds of hydrocarbons. However, to avoid double-
counting benefts, additional reductions in greenhouse gases
and other emissions have not been monetized.
Te BGC enhances the safety and usability for ADA users
by creating or improving ADA accessibility at 10 locations
along the trail. Since the magnitude of the improvements
varies by location, this beneft has not been monetized.
However these improvements are critical to maintain
compliance with ADA standards and ensure access to the Link
light rail, bus transit, the UW and the UCUC for all users.
“At Seattle Children’s we believe that livable streets and safe,
accessible active transportation choices will be a signifcant
contributor to public health, reducing individual and social
costs. Tis project will be an important part of delivering on that
promise.” — Paulo Nunes-Ueno
Projection of the number of direct/
indirect and induced jobs created
by the BGC, by sector, per the NOFA
guidelines.
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Jobs created by the BGT by sector
28 Burke-Gilman Multimodal Connector TIGER Application
V Project Readiness
Project readiness
Te BGC will begin construction of Phase Two work February
2015 and anticipates early obligation of TIGER funds in
the fourth quarter of 2014. We have absolute confdence in
the ability of the project to obligate TIGER funds prior to
the USDOT priority obligation date of June 30, 2016 and
obligation cutof date of September 30, 2016. All necessary
local approvals have been secured and the documentation
required to secure a Documented Categorical Exclusion under
NEPA has been completed and is ready for formal review and
approval upon award of funds.
Inclusion of the project in the Regional Transportation
Improvement Program (TIP), and the Washington Statewide
Transportation Improvement Program (STIP) is assured by
our regional MPO, Puget Sound Regional Council, in their
letter of support. As a matter of state and regional policy, fnal
NEPA documentation cannot be formally approved by the
Washington State Department of Transportation (WSDOT)
until funds are awarded and the project is placed on the STIP.
Technical feasibility
Te technical feasibility of the BGC has been the subject
of intensive engineering and design eforts, including the
Burke-Gilman Trail Corridor Study (http://goo.gl/o58zB)
and the Burke-Gilman Trail Design Concept Plan (http://goo.
gl/V463b). Furthermore, the project has been considered by
the University Design Review Board, University Landscape
Architecture Committee, University of Washington
Architectural Commission, partner agency reviewers, citizen
advisory boards and in civic organization forums.
Recognizing that the BGC includes a suite of innovative
design treatments, the UW recently constructed a
demonstration section of the new trail design to provide
opportunities for the design team, reviewing and approving
bodies, and the general public to both experience the
new treatments as users and to observe interactions
with the infrastructure to ensure it achieves the desired
behavioral outcomes. Expert and citizen feedback from the
demonstration section has been incorporated into the fnal
project design.
Tese extensive design and review processes were intended
to ensure that the BGC would not encounter technical
complications that could adversely impact obligation or
construction timelines. Te UW is confdent that all technical
issues have been identifed and mitigated through its robust
internal, partner and public processes. A detailed statement
of work is included on pages two and three as a Detailed List
of Improvements.
Financial feasibility
Tis $14 million TIGER grant request represents the fnal
funding for the BGC, allowing the UW to proceed with
construction in Q1 2015. A summary budget is provided
in Section III Grant Funds & Sources. Te attached Excel
spreadsheet and appendices provide a detailed project budget,
including a breakdown of how funds will be expended, their
sources, and project segmentation and phasing.
Te cost estimate has been developed by the design team
and independently reviewed by UW estimators. Te UW has
incorporated cost escalation and contingencies appropriate to
the current level of design, and has additional reserves beyond
the contingency funds to mitigate any budget risks.
All UW funds identifed in the project funding plan are
in hand and have been transferred to the project budget.
Contingency reserves in the event of withdrawal by a funding
partner are designated in the appropriate operating budget.
Te recipient has net assets in excess of $5.5 billion and
a demonstrated capability in managing grants, currently
managing over $1 billion in grant-funded research each
year (http://goo.gl/Qet5o). Te UW’s substantial scale and
extraordinary historical performance in the administration of
federal grants should give USDOT confdence in the ability of
the recipient to successfully carry out the contracted work.
Assessment of project risks & mitigation
strategies
With all non-TIGER funds in hand, contingencies fully
funded, current ownership of all right-of-way (except
intersected SDOT right-of-way) and ownership of all adjacent
land, extensive review processes materially complete, and
a physical demonstration of the strategies to be deployed
successfully conducted, the UW is confdent that all known
risks have been fully mitigated and that unknown risks have
been signifcantly limited.
Three areas of limited, unknown risk persist
As the project site is a former rail corridor, the UW anticipates
some level of legacy soil contamination (Class 3) that will
need to be mitigated if discovered. Te project budget and
schedule anticipate this condition and are informed by the
soils encountered during other work in the corridor. Te UW
has sufcient contingency funds and the project schedule
has sufcient fexibility to address any soil remediation
issues without jeopardizing project completion on-time and
on-budget. Soil testing prior to construction will allow any
remediation to be integrated into the project schedule without
work disruption.
Te project site is constrained and adjacent to another
project site. UW’s experience in administering construction
projects in constrained sites has allowed for the consideration
Burke-Gilman Multimodal Connector TIGER Application 29
2011 2012 2013 2014 2015 2016
J F MA MJ J A S O N D J F MA MJ J A S O N D J F MA MJ J A S O N D J F MA MJ J A S O N D J F MA MJ J A S O N D J F MA MJ J A S O N D
Technical Studies and Concept Planning
Final Design and Approval for Phase One
Phase One NEPA Documented Categorical Exclusion Approved
CMAQ Funds Obligated for Phase One
Final Design and Approval for Phase Two
Phase Two NEPA Documentation Completed, Reviewed, and Ready for Approval
1
Advertise/Award Phase One
Construction of Phase One
TIGER Awards Announced
Project Placed on State Transportation Improvement Program upon Award
2
NEPA Documented Categorical Exclusion Approved
1
TIGER Funds Obligated
Advertise/Award Phase Two
Construction of Phase Two
Link Light Rail Service Starts University Station
Project timeline
V Project Readiness
of this factor in cost estimating and contingency
determination. Te adjacent project is also a UW project with
a group of partners that overlaps with the BGC – creating
a strong motivation and efcient structure for project
coordination. Any remaining conficts can easily be addressed
through work sequencing.
An arrowhead discovered during excavation near
Phase One of the project highlights the uncertainty
experienced by all water-adjacent projects in the Northwest
as it relates to cultural artifacts. UW project managers have
experience responding to the discovery of probable cultural
artifacts and are skilled at efciently completing steps outlined
by state and federal law for artifact protection. Te UW has
multiple archaeologists on staf and the efciency of response
is further enabled by the fact that the UW hosts the state
natural history museum just minutes from the project site.
Te project schedule and budget both have sufcient
contingencies to address any cultural artifacts discovered in
the project site. NEPA has been satisfed for Phase One with a
Documented Categorical Exclusion already approved. Review
for Phase Two will involve the same interested parties and
incorporates similar approaches to sensitive areas/objects.
Te UW has a high level of confdence that this factor is
fully mitigated and in its ability to obtain the Documented
Categorical Exclusion.
Project schedule
All pre-construction activities will be complete and grant
funding awarded will be obligated no later than December 31,
2014. Te BGC includes Phase One construction, expected
to begin by June 2014 and completed by February 2015 and
funded in-part through a regional CMAQ competition.
Assuming a TIGER award, Phase Two would anticipate
starting February 2015, and concluding in December 2015, in
time for the expected start of light rail service to the campus
community in the frst quarter of 2016.
Te UW owns all project right-of-way. Where the
project intersects City of Seattle right-of-way, construction
easements are being secured to allow for infrastructure
to transition seamlessly across right-of-way boundaries or
work is being completed by the City of Seattle as an in-
kind contribution to the project. With the City as a funding
partner for the BGC, efcient collaboration at these points of
intersection is guaranteed.
1
Washington State DOT will approve NEPA DCE status only after the project is placed on the State Transportation Improvement
Program (STIP).
2
MPO assures the placement of the project on the STIP once funds are awarded. MPO will not place unfunded projects on the STIP
as a matter of policy.
30 Burke-Gilman Multimodal Connector TIGER Application
V Project Readiness
Planning approvals
NEPA/SEPA
Te University of Washington obtained a Documented
Categorical Exclusion (DCE) on September 9, 2013 under
both the National Environmental Policy Act and the State
Environmental Policy Act for Phase One of the project. Te
UW has completed documentation that supports DCE status
for Phase Two. Out of an abundance of caution and as part
of the NEPA review process, UW has completed an Area of
Potential Efect report for historic and cultural resources for
both phases of the project.
Environmental review and documentation for Phase
Two is complete and meets the criteria for Documented
Categorical Exclusion. Te UW has a high level of confdence
in obtaining the Documented Categorical Exclusion. Final
approval of the NEPA documentation and DCE status will
be completed immediately afer award of funds; as a matter
of regional and state policy, the placement of the project on
the TIP, STIP and formal approval of NEPA documentation
and DCE status cannot be completed until funds are awarded.
In the meantime, UW has received assurances from PSRC
that the project will be placed on the TIP, and STIP, and
WSDOT has confrmed that they will formally approve NEPA
documentation upon award. All NEPA documentation is
available at: uw.edu/bgt/documents/nepa.
Legislative approvals
No legislative approvals are required for this project.
Authorization to execute the BGC has been granted by
the UW Regents and Administration. Both entities have
authorized the necessary funding and expressed signifcant
enthusiasm for the project.
State and local planning
Te BGC Phase One work associated with the BGC is
included in the Washington Statewide Transportation
Improvement Program (STIP), and inclusion of the Phase
Two work in the TIP and STIP is assured by PSRC in their
letter of support. Additionally, the project is consistent with all
other relevant plans including:
• Regional Growth Management Plan (VISION 2040)
http://goo.gl/cxuvB
• Metropolitan Transportation Plan (Transportation
2040) http://goo.gl/Hppzy
• Seattle Bicycle Master Plan http://goo.gl/obx3G
• Seattle Pedestrian Master Plan http://goo.gl/2OlhC
• University Area Transportation Action Strategy http://
goo.gl/YcJyK
• Strategic Plan for Seattle’s University District http://goo.
gl/z8hm2
• King County Strategic Plan for Public Transportation
http://goo.gl/H2KnO
• Sound Transit Long Range Plan http://goo.gl/9kECc
Burke-Gilman Multimodal Connector TIGER Application 31
Federal Wage Rate Certifcation
I, Richard Chapman, on behalf of the University of Washington, an entity of the State of Washington and applicant for
TIGER VI funding for the Burke-Gilman Trail Multimodal Connector, hereby certify that the University of Washington will
comply with subchapter IV of chapter 31 of title 40, United States Code (federal wage requirements), as required by the FY 2014
Continuing Appropriations Act.
Richard Chapman
Associate Vice President for Capital Projects
University of Washington
VI Federal Wage Rate Certifcation