SR 14 AND DOG MOUNTAIN 

CONGESTION AND SAFETY STUDY

Comprehensive guidance to 

improve safety and manage 

congestion in Washington’s 

Columbia River Gorge National 

Scenic Area
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SR 14 and Dog Mountain

Congestion and Safety Study

Contract No. DTFH7015D00002, Task Order No. 

69056720F000058: 

WA DOT 14(4), Conges on and Safety Mi ga on Plan

WA DOT 14(3), Dog Mountain Trailhead Study 

Prepared for: 

Western Federal Lands Highway Division

December 2022

Prepared by: 

David Evans and Associates, Inc. 

2100 South River Parkway, Suite 100 

Portland, OR 97201 
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Acknowledgments

The development of this SR 14 and Dog Mountain Conges on and Safety Study has been the collec ve 

eff ort of the following people:

Core Project Team:

Seth English-Young, Senior Transporta on Planner, Western Federal Lands Highway Division

Lorelei Haukness, Recrea on Planner, United States Forest Service

Stan Hinatsu, Recrea on Staff Offi cer, United States Forest Service

Laurie Lebowsky-Young, Planning Director, Washington State Department of Transporta on

Consultant Team:

David Evans and Associates, Inc.

Angela Rogge, PE, Project Manager

Dian Mao, PE, Transporta on Engineer

Tom McKerlick, PE, Transporta on Engineer

Reece Murata, PE, Roadway Engineer

Andrew Mortensen, Sr. Transporta on Planner,

Kat Holtan, Transporta on Planner

Jason Medema, Environmental Specialist/Planner

Melissa Foltz, GIS Graphics

Ron Larson, PE, Quality Assurance/Control Specialist

Aldo González, Graphic Design

Chris! ne Immroth, Technical Editor

Nita Bruhn, Project Coordinator

EnviroIssues

Public Involvement Specialists
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Contents

EXECUTIVE SUMMARY 1

 Introduction 3

 Policy and Planning Context 4

 Coordination 4

 Needs Assessment 5

 Safety and Congestion Toolkit 5

 Dog Mountain Trailhead Relocation 6

 Implementation 7

 Summary 7

INTRODUCTION 9

 Popularity of the Columbia River Gorge 11

 Study Purpose and Need 12

 Vision 13

 Goals and Objectives 13

 Study Area 15

POLICY AND PLANNING CONTEXT 17

 Columbia River Gorge

 National Scenic Area Management Plan 19

 General and Special Management Areas 19

 Guidelines Relating to Transportation Facilities 21

 Washington State Policy and Plan Oversight 22

 WSDOT State Highway and

 Active Transportation Plan Guidance 22

 State Highway Design 23

 Ongoing Transportation Plans Aff ecting

 SR 14 and the Gorge 23

COORDINATION 25

 Project Partners and Core Project Team 27

 Stakeholder Participation 27

 Public Involvement 28

NEEDS ASSESSMENT 29

 Recreational Setting 31

 Recreation Sites 31

 Recurring Congestion and Parking Overfl ow 34

 Summary Findings at Recreation Sites 34

 Transportation Conditions 43

 Physical Challenges of the SR 14 Corridor 43

 Daily and Seasonal Travel 44

 Multimodal Access 45

 Increasing Traffi c Congestion 46

 Safety Characteristics 47

 Natural, Cultural and Scenic Resources 49

SAFETY AND CONGESTION TOOLKIT 51

 System Level 58

 SR 14 Segments 58

 Recreation Sites 59

 Cape Horn Viewpoint 60

 Cape Horn Trailhead 61

 Beacon Rock State Park 63

 Drano Lake Boat Ramp 64

 Swell City to Spring Creek State Park 65

 Coyote Wall Trailhead 66

 Catherine Creek Trailhead 67

 Informal Recreation Sites - Special Considerations 69

DOG MOUNTAIN

TRAILHEAD RELOCATION 71

 Concept Development 73

 Screening the Options 73

 Preliminary Site Concepts 73

 Concept Refi nement 74

 Grant Lake Conceptual Layout Plans 74

 Access and Safety Improvement Opportunities 76

 Next Steps in Project Development 78

IMPLEMENTATION 79

 Flexible Response 81

 Cooperation 81

 Funding Multimodal Access Projects 81

 SR 14 Projects 81

 Federal Land Projects 82

 Funding Sources 82
FIGURES

1. CRGNSA Visitors in 2018 11

2. SR 14 Corridor and Study Area 15

3. Dog Mountain Trailhead Parking Lot 16

4. CRGNSA General Management Area, Special 20

Management Area, and Urban Area Designations 

5. Variations in SR 14 Traffi c 44

6. Gorge Translink Routes 45

7. Current and Forecasted Average Daily Traffi c 46

8. Number of Crashes by Severity and Year 47

9. SR 14 Crash Density 48

10. Dog Mountain Trailhead Crash Density 48

11. CRGNSA Manamement Plan Resources 49

12. Safety and Congestion Toolkit Strategies 53

13. SR 14 Segments 58

14. Dog Mountain Trailhead Relocation Initial 73

Conceptual Locations 

15. Site 1 - NW Grant Lake Dispersed 74

16. Site 2 - NW Grant Lake Compact 75

17. Project Development 78

TABLES

1. Goals and Objectives 14

2. Parking Provisions for Special and General 21

Management Areas within the CRGNSA

3. Special Management Area and 32

General Management Area Parking Provisions

4. Congestion and Safety Toolkit 53

5. Toolkit Strategies 59

6. Mitigation Strategies for Consideration at Existing 76

Dog Mountain Trailhead

7. Long-Term Mitigation Considerations at Existing 77

Dog Mountain Trailhead 

APPENDICES 

A. Existing Transportation Conditions and Environmental Scan

B. Dog Mountain Concept Refi nement Report

C. Public Involvement Report

D. Funding Sources
Abbreviations and Acronyms

AADT Annual Average Daily Traffi c

ABA Architectural Barriers Act

ADA Americans with Disabilities Act

ATP Washington State Active Transportation Plan

BIA Bureau of Indian Aff airs

BNSF BNSF Railway

CAT Columbia Area Transit

CPT Core Project Team

CRGNSA Columbia River Gorge National Scenic Area

DEA David Evans and Associates, Inc.

FHWA Federal Highway Administration

FLAP Federal Lands Access Program

FTA Federal Transit Administration

GMA General Management Area

Gorge Columbia River Gorge National Scenic Area

HSP Washington State Highway System Plan

KVA Key Viewing Area

MOU Memorandum of Understanding

MP Mile Post

MPH Miles Per Hour

MPO Metropolitan Planning Organization

N/A Not Applicable

NEPA National Environmental Policy Act

PCMS Portable Changeable Message Signs

PTP 2016 Washington State Public Transportation Plan

RIC Recreation Intensity Class

RTP Regional Transportation Plan

RTPO Regional Transportation Planning Organization

SMA Special Management Area

SR State Route

STIP Statewide Transportation Improvement Program

TIP Transportation Improvement Program

UA Urban Area

USACE United States Army Corps of Engineers

USFS United States Forest Service

USFWS United States Fish and Wildlife Service

VMS Variable Message Signs

WSDOT Washington State Department of Transportation

WTP 2040 Washington Transportation Plan 2040 and Beyond
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Executive Summary
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E x e c u t i v e S u m m a r y SR 14 and Dog Mountain Congestion and Safety Study 3

Executive Summary

Introduction

For the SR 14 and Dog Mountain Conges on and Safety Study, the Federal Highway Administra on 

(FHWA) partnered with the United States Forest Service (USFS) and the Washington State Department 

of Transporta on (WSDOT) (together, the “project partners”) to study conges on and safety in two parts: 

(1) recrea on access sites along an 80-mile stretch of Washington State Route (SR) 14 and (2) a detailed 

examina on of op ons to relocate the Dog Mountain Trailhead.

SR 14, a two-lane rural and rolling highway, is the primary access route to many of Washington’s popular 

recrea on areas within the Columbia River Gorge Na onal Scenic Area (CRGNSA). SR 14 is a scenic corridor 

rich in natural, cultural, and recrea onal resources, and provides access to the Dog Mountain Trail and a 

number of other popular recrea on sites. The CRGNSA was created to protect scenic, natural, cultural, and 

recrea onal resources in the Gorge. There is growing interest to address increasing demand for recrea on 

access. The challenge is to iden fy solu ons that help protect resources in the Gorge, consistent with the 

guidelines established in the CRGNSA Management Plan.

The Introduc on chapter of this study report fully defi nes the study area and the study purpose and need 

(which are summarized below), as well as vision statements for each of the two study parts, and a series 

of goals and objec ves used to guide development of improvement strategies to help achieve the study 

purpose.

Need Study Area

Purpose

The increased use of the trails and recreation sites along SR 14 (and throughout the Gorge) 

has impacted user experiences, particularly on weekends and holidays in the spring and 

summer. As the region’s population continues to grow, the number of people who use SR 

14 for transport, travel, and access to recreation sites in the Gorge has increased and placed 

a strain on transportation facilities in the CRGNSA. High vehicular demand into and through 

the Gorge creates traffi c delays and safety concerns for both motorists and other users. Traffi c 

volume and site data indicate trends for continued growth in user activity. To prevent further 

degradation of SR 14 and connecting accesses to recreation sites, strategies need to be 

developed to address crowding, congestion, and related safety issues.

The study area (Figure E-1) includes 

the SR 14 corridor within the CRGNSA, 

from Washougal to Maryhill, and the 

connecting access roads and parking lots, 

with emphasis on facilities that provide 

access to recreation sites. Within the study 

area, the study gives special focus to the 

Dog Mountain Trailhead and its existing 

parking lot.

The purpose of the study is to develop a comprehensive package of strategies that can be implemented to address the transportation and 

safety needs of those using SR 14 to access recreations sites within the CRGNSA.

Figure E-1: SR 14 Corridor and Study Area
4 SR 14 and Dog Mountain Congestion and Safety Study

Policy and Planning Context

Coordination

The Policy and Planning Context chapter of this study report outlines the CRGNSA Management Plan 

administered by USFS, individual coun es and the Columbia River Gorge Commission for lands and access 

facili es within the Gorge. The chapter also provides an overview of the Washington State Transporta on 

Plan and its suppor ng mul modal plans.

The study was led by the project partners that comprise the Core Project Team (CPT), which includes 

representa ves from FHWA, USFS, and WSDOT. The CPT met regularly to guide the study needs, inform the

development of poten al improvement strategies, and iden fy implementa on opportuni es.

E x e c u t i v e S u m m a r y

CRGNSA Management Plan Washington State Transportation Plan

The CRGNSA Management Plan was created to 

ensure that the land within the CRGNSA is used 

consistently in accordance with the purposes and 

standards of the Columbia River Gorge Na onal 

Scenic Area Act. Land use designa ons, landscape 

se! ngs, and recrea on intensity classes in the 

CRGNSA Management Plan dictate the policies 

and regula ons related to transporta on facili es, 

including the size of parking lots serving individual 

recrea on sites. Strategies iden fi ed in the study 

to address needed improvements must address 

the requirements of the Management Plan.

The Washington Transporta on Plan 2040 and 

Beyond (WTP 2040) was prepared by WSDOT and 

adopted by the Washington State Transporta on 

Commission. WTP 2040 incorporates statewide 

policy goals and objec ves based on agency and 

public input. WSDOT develops and administers 

mul ple long-range modal, safety, infrastructure, 

and community engagement plans suppor ng the 

goals of WTP 2040. WTP 2040 and its suppor ng 

plans guide administra ve management and 

planning oversight on SR 14 and other state highways 

within the study area.

SR 14 and Dog Mountain Trailhead 

Conges on and Safety Study

Sample of online open house outreach material: Public input was 

instrumental to the study, informing the needs assessment and 

improvement strategies to address safety and congestion issues in the SR 

14 corridor.

A stakeholder group was formed to inform the 

study. The stakeholder group, which included 

representa ves from more than two dozen 

stakeholders from various federal agencies, coun es 

and ci es, tribal na ons, and private advocacy 

groups, met three  mes throughout the dura on 

of the study. Several stakeholders reviewed and 

provided direct comments on the dra# study report

and fi ndings.

The study recognizes the Columbia River Gorge 

has been home to Indian people since “ me 

immemorial”. In addi on to including tribes in the

stakeholder group, the project partners consulted 

with tribes on a government-to-government basis. 

These tribes included the Confederated Tribes of the 

Warm Springs, and Yakama Na on, Nez Perce Tribe, 

the Confederated Tribes of Uma lla Indian Reserva on, the Confederated Tribes of the Grand Ronde, the 

Cowlitz Tribe and the Siletz Tribe.

The public was provided opportuni es to engage with the CPT throughout the planning process. There were 

three primary avenues for par cipa on during the development of the study: online open houses, a$ endance 

at virtual community conversa ons, and comments submi$ ed by way of the study’s project website and email 

to the CPT. Appendix C includes a full summary of the public involvement process and outcomes.
SR 14 and Dog Mountain Congestion and Safety Study 5

Safety and Congestion Toolkit

The study developed a Safety and Conges on Toolkit (Toolkit) for 

applica on throughout the study area, with tools and strategies to 

address transporta on safety and conges on. These tools and strategies 

were developed based on the full examina on of exis ng condi ons and 

future traffi c demand as summarized in the Needs Assessment, with input 

from the public, project partners, and stakeholders, as noted previously 

under “Coordina on.”

The Toolkit is organized under eight categories, describing the tools and 

strategies that are applicable in various focus areas of the study area. 

Applica on of the Toolkit follows an adap ve management approach 

that emphasizes strategies and solu ons with the least resource impact, 

followed by strategies with greater impact, as needed. 

The Safety and Conges on Toolkit chapter summarizes the tools and 

strategies recommended for implementa on within three focus areas: 

(1) System Level, (2) specifi c SR 14 Segments, and (3) Recrea on Sites. 

Applied Toolkit fi ndings are summarized for the eight recrea on sites in 

the study area that experience recurring instances of parking overfl ow 

that result in visitors parking on the shoulder of the adjacent county road 

E x e c u t i v e S u m m a r y

Day use hiking and sightseeing are highly popular 

ac vi es that are centered at various trailheads 

throughout the Gorge. Trailhead facili es o! en 

include picnic areas, restrooms, and other 

ameni es. Parking facili es are either paved or 

graveled at these sites. There are also overnight 

camping areas that are more popular during the 

summer months.

The Needs Assessment chapter summarizes the 

study process and fi ndings in the evalua on of 

access and parking facili es at 35 recrea on sites 

within the study area. Parking capacity and u lity

condi ons vary depending on the season and the 

trailhead loca on. Regardless of their capacity and 

condi ons, most trailhead parking areas reach 

maximum capacity on the weekend throughout the 

Safety and Congestion Toolkit Strategies 

for the SR 14 and Dog Mountain Study 

Areas

Figure E-2: Recreation Sites with Recurring Congestion

Needs Assessment

summer season, and there are an increasing number 

of days when li" le to no parking is available for most 

of the day. The study iden fi ed eight formalized 

recrea on sites that have recurring conges on and

visitor parking overfl ow, shown in Figure E-2 below. 

The Needs Assessment chapter also summarizes 

the transporta on condi ons along SR 14 within 

the study area, including peak summer traffi c 

condi ons and vehicle crash history in the 

corridor. The study examined all modes of access 

to recrea on sites, including private vehicle, 

public transporta on, and pedestrian and bicycle 

access. A more detailed examina on of exis ng 

transporta on and land use condi ons is provided 

in Appendix A to this study.
6 SR 14 and Dog Mountain Congestion and Safety Study

Dog Mountain Trailhead Relocation

The Dog Mountain Concept Refi nement Report (Appendix B) is a separately funded project that idenÅ fi es

soluÅ ons to address known safety and congesÅ on concerns at the exisÅ ng Dog Mountain Trailhead, located 

immediately north of SR 14. Findings of the Dog Mountain Concept Refi nement Report are summarized in a

separate chapter of this study.

The purpose of the Concept Refi nement Report is to provide the project planning partners (FHWA, USFS, and 

WSDOT) the informaÅ on needed to refi ne the project scope and support subsequent NaÅ onal Environmental 

Policy Act (NEPA) analysis, the project purpose and need statement, and a raÅ onal basis for a reasonable range of 

opÅ ons considered and evaluated.

The concept refi nement idenÅ fi ed fi ve opÅ onal sites to relocate or improve the Dog Mountain Trailhead and 

its associated parking lot. The CPT completed a screening process of the opÅ ons while considering the study’s 

purpose and need, which resulted in recommending relocaÅ ng the Dog Mountain Trailhead west of its current 

locaÅ on and further study of the area near Grant Lake as a potenÅ al site for the new parking lot and trailhead 

access.

Unique conceptual layouts were developed to illustrate two possible trailhead and parking confi guraÅ ons near 

Grant Lake. These two concepts will undergo further analysis for compliance with NEPA and other federal and 

state regulaÅ ons, including development of conceptual-level plans (30 percent design) to clearly idenÅ fy the 

footprint of the project and idenÅ fy the boundaries of the environmental studies that follow. Natural resource, 

biological, and visual impacts will all be considered to more accurately determine the type and extent of necessary 

special design treatments in the relocaÅ on of the Dog Mountain Trailhead and parking lot.

Figure E-3: Dog Mountain Trailhead Relocation Initial Conceptual Locations

Defi ning Purpose and Need: 

• Minimize or remove 

hazardous conditions 

along SR 14 as they 

relate to accessing 

the Dog Mountain 

Trailhead

• Discourage parking on 

SR 14

• Support the land 

management strategies 

of USFS

• Maintain the trail user 

experience of the Dog 

Mountain Trail

E x e c u t i v e S u m m a r y

or along SR 14. Applied Toolkit fi ndings are also summarized in the Dog Mountain Trailhead RelocaÅ on 

chapter.

For each site, the lead agency (with jurisdicÅ on) is idenÅ fi ed for conducÅ ng further site study and project 

development. Lead agencies will partner with local organizaÅ ons such as Friends of the Columbia River 

Gorge to help guide develop plans for accessible, barrier-free opÅ ons and to help make sure that accessible 

accommodaÅ ons are accounted for in the design of parking lots and visitor access faciliÅ es.
SR 14 and Dog Mountain Congestion and Safety Study 7

Implementation

Summary

The SR 14 and Dog Mountain Conges on and Safety Study is an early step to address the increasing demand for 

recrea on access. The ini al assessment of the strategies and solu ons iden fi ed in the study are believed to be 

consistent with the CRGNSA Management Plan. Project implementa on would require a formal review to ensure 

consistency with the CRGNSA guidelines to and allow for the con nued protec on of natural, cultural, and scenic 

resources of the Gorge.

A framework of fl exible and adap ve management is required to address the complex recrea on and transporta on 

needs within the CRGNSA and along SR 14. Several of the strategies from the Safety and Conges on Toolkit are 

complementary and interconnected. Their successful implementa on in the form of future safety and conges on 

mi ga on projects will require con nued coordina on between the project partners.

The process to secure funding for poten al projects on SR 14 or other state highways in the study area diff ers 

from that for projects exclusively on federal lands. The Implementa on chapter summarizes a logical process 

to confi rm and secure funding for priority state highway projects origina ng from the SR 14 and Dog Mountain 

Conges on and Safety Study. Poten al projects on federal lands external to state highway rights-of-way may be 

funded directly through federal grants on a merit basis and may require a formal applica on process.

A combina on of a federal grant and state funding programs are a resource to fund SR 14 safety and access 

improvements.
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Introduction
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SR 14 and Dog Mountain Congestion and Safety Study 11

Introduction

The Federal Highway Administra on (FHWA) partnered with the United States Forest Service (USFS) and 

the Washington State Department of Transporta on (WSDOT) (together, the “project partners”) to study 

conges on and safety along an 80-mile stretch of Washington State Route (SR) 14 and the Dog Mountain 

Trailhead. 

The study was guided by a Core Project Team (CPT), which included representa ves from FHWA, USFS, 

WSDOT, and the consultant David Evans and Associates, Inc. (DEA).

Popularity of the Columbia River Gorge National Scenic Area

In 2018, over 3.2 million visits were made to one or more des na ons within the Columbia River Gorge

Na onal Scenic Area (CRGNSA or “Gorge”)1. Over half of the visitors surveyed live within Pacifi c Northwest, 

many of which frequent the Gorge more than once a year. The remaining 50% of the Gorge visitors travel

from other US states and abroad. The eff ects of the Gorge’s great popularity are manifested in traffi c

conges on and safety issues at many recrea on, and scenic des na ons.

2,000

Miles

3,000

Miles

1,000

Miles

500

Miles

3,000

Miles

10%

40%

12%

22%

12%

4%

Columbia River Gorge National Scenic Area

Annual Visitors First time Visitors

and beyond

3.2 M 60%

Figure 1: CRGNSA Visitors in 2018

I n t r o d u c t i o n

1 A site visit is the entry of one person onto a National Forest site or area to participate in recreation activities for an unspecifi ed period of time.
12 SR 14 and Dog Mountain Congestion and Safety Study I n t r o d u c t i o n

Study Purpose and Need

SR 14, a two-lane rural and rolling highway, is the primary access route to many of Washington’s popular 

recrea on areas in the Gorge. SR 14 is a scenic corridor rich in natural, cultural, and recrea onal resources, 

and provides access to the Dog Mountain Trail, one of the most popular hikes in the CRGNSA. Renowned for 

its drama c spring wildfl ower displays, panoramic views, and challenging physical workout, Dog Mountain 

is one of the CRGNSA’s most visited and photographed loca ons, par cularly on CRGNSA’s Washington 

side of the Gorge. 

The CRGNSA was created to protect the scenic, natural, cultural, and recrea onal resources of this amazing 

area. There is increased interest to address increasing demand for recrea on access while iden fying

solu ons that are consistent with guidelines established in the CRGNSA Management Plan, that allow for the 

con nued protec on of natural, cultural, and scenic resources.

A Note on COVID-19

In March of 2020, as the scope of this study was being fi nalized, 

COVID-19 was declared a pandemic by the World Health 

Organization. At that time, it was not known what the long-term 

changes in travel behavior in the corridor would be. Priorities of 

agencies and organizations appropriately shifted to address the 

immediate and critical needs associated with the pandemic. 

Data collection for this study was delayed and planned in-person 

meetings were changed to a virtual setting. The CRGNSA, where 

much of the economy is driven by tourism, initially incurred 

substantial economic hits as businesses and recreation sites 

closed to the public. However, recreational use quickly rebounded, 

because enjoying the outdoors was embraced as a safe activity 

and opportunity to socialize outside the confi nes of one’s own 

home. 

Because of these unprecedented times, this study recognizes 

that long-term planning and implementation of some of the 

recommended projects and eff orts may be infl uenced by the 

need for jurisdictions, agencies, and organizations to adjust to the 

ever-changing post-pandemic world. COVID-19 has also shown 

the urgency and need for the recommendations outlined in this 

report. The transportation framework presented in this study 

includes many similar tools needed to manage recreation and 

visitation levels.

View from Dog Mountain During Wildfl ower Season

Need

Purpose

The increased use of the trails and recrea on 

sites along SR 14 (and throughout the Gorge) 

has impacted user experiences, par cularly on 

weekends and holidays in the spring and summer. 

As the region’s popula on con nues to grow, the 

number of people who use SR 14 for transport, 

travel, and to access recrea on sites in the Gorge

has increased and placed a strain on transporta on 

facili es in the CRGNSA. 

The high vehicular demand into and through the 

Gorge creates traffi c delays and safety concerns 

for both motorists and other users. Traffi c volume 

and site data indicate trends for con nued growth 

in user ac vity. To prevent further degrada on 

of SR 14 and connec ng accesses to recrea on 

sites, strategies need to be developed to address 

crowding, conges on and the related safety issues.

The purpose of the study is to develop a 

comprehensive package of strategies that can 

be implemented to address the transporta on 

and safety needs of those using SR 14 to access 

the CRGNSA. The study will help facilitate early 

coordina on with local, state, and federal 

agencies; the public; and other stakeholders and 

the screening of possible improvement op ons.
SR 14 and Dog Mountain Congestion and Safety Study 13

Vision

Goals and Objectives

SR 14 Vision Dog Mountain Trailhead Vision

Because the study comprises two unique and dis nct components (SR 14 and the Dog Mountain Trailhead), 

vision statements were developed that clarify the overall mission for each component.

To promote safe access to high-use recrea onal 

areas in the Columbia River Gorge Na onal Scenic 

Area through the iden fi ca on of opportuni es 

to address conges on and safety concerns 

while protec ng scenic, natural, cultural, and 

recrea onal resources.

To manage conges on at, and promote safe 

access to, the Dog Mountain Trailhead through 

the iden fi ca on of design alterna ves that are 

consistent with the CRGNSA Management Plan.

View from Cape Horn

I n t r o d u c t i o n

Six goals are established for the study and are used to guide development of strategies and concepts 

to achieving the study purpose.

Safety

Congestion Management

Strategic Investment

Access

Future

Resource Protection

Enhance safety for all transportation modes.

Reduce or mitigate congestion along the 

corridor.

Develop a fi scally sustainable plan for the corridor 

through responsible stewardship of fi nancial 

resources.

Maintain access to destinations within the corridor.

Provide a plan that considers expected changes in 

future use.

Protect the scenic, natural, cultural, and recreational 

features.

Note: Poten al solu ons must meet CRGNSA guidelines established in the Management Plan.
14 SR 14 and Dog Mountain Congestion and Safety Study I n t r o d u c t i o n

Measurable objec ves are defi ned for each goal and

provide the basis for evalua ng poten al strategies, 

programs, and projects that best meet the study 

Purpose and Need. Goals provide broad direc on 

for what the study hopes to achieve; corresponding 

objec ves provide more detail on how to achieve 

the goal or ar culate desired specifi c outcomes 

related to the goal. Table 1 summarizes the study’s 

goals and objec ves.

Table 1: Goals and Objectives

Goals Objectives

Safety

Enhance safety for all 

transportation modes.

a. Reduce confl icts among highway and recreational site users. 

b. Address existing safety issues at locations with a history of fatal and severe injury vehicle and 

bicycle - and/or pedestrian-related crashes. 

c. Support technology applications that improve safety. 

d. Improve the visibility of transportation users in constrained areas, such as on hills and blind 

curves. 

e. Improve pedestrian safety at trailheads.

Congestion Management

Reduce or mitigate congestion 

along the corridor.

a. Develop a program to systematically implement improvements for all travel modes that enhance 

mobility at designated high-priority locations.

b. Reduce reliance on single-occupancy vehicle trips.

c. Improve travel reliability and effi ciency of SR 14.

d. Increase awareness of availability of park and ride opportunities.

e. Identify opportunities to spread out visitation along the entire corridor.

Strategic Investment

Develop a fi scally sustainable 

plan for the corridor through 

responsible stewardship of 

fi nancial resources.

a. Prioritize improvements with a relative higher return on investment.

b. Pursue grants and collaboration with other agencies to fund transportation improvements and 

supporting programs.

c. Preserve and maintain existing assets to extend their useful life.

Access

Maintain access to destinations 

within the corridor.

a. Preserve and maintain the existing transportation system in a state of good repair. 

b. Encourage intermodal transportation linkages within the highway corridor. 

c. Provide access to multiple modes and transportation options to the extent practicable through 

planning and design guidance and coordination.

d. Provide clear and comprehensive messaging about transportation options programs, services, and 

modes.

e. Enhance access to recreation sites for transportation disadvantaged populations.

Future

Provide a plan that considers 

expected changes in future use.

a. Accommodate existing and future capacity demands. 

b. Reduce maintenance needs. 

c. Provide connectivity to residents and regional users accessing recreational lands along the 

corridor.

d. Improve accessibility to better distribute recreational use.

Resource Protection

Protect the scenic, natural, 

cultural, and recreational 

features.

a. Ensure consistency with the Management Plan for the CRGNSA and state, regional, and local 

planning rules, regulations, and standards. 

b. Avoid or minimize impacts to the scenic, natural, and cultural resources. 

c. Maintain the rustic character and scenic integrity of the SR 14 corridor.

d. Coordinate proposed improvements with tribal governments to ensure that tribal treaty rights are 

protected.

Note: Any potential solution must meet National Scenic Area goals.
SR 14 and Dog Mountain Congestion and Safety Study 15

The study area (Figure 2) includes the SR 14 corridor within the CRGNSA, from Washougal to Maryhill, and 

the connec ng access roads and parking lots, with emphasis on facili es that provide access to recrea on 

sites. Within the study area, the study gives special focus to the Dog Mountain Trailhead and its exis ng 

parking lot. The two main components of the study area are summarized below.

Lewis and Clark Trail Scenic Byway 

The central por on of this 572-mile byway, 

which traces the route taken by Lewis and Clark, 

runs through the CRGNSA. The byway follows 

the twists, turns, and hills of the Columbia River, 

off ering glimpses of lush Oregon slopes and 

providing numerous roadside stops, including 

several historical markers.

Figure 2: SR 14 Corridor and Study Area

The study corridor is an 80-mile stretch of SR 14 

beginning at mile post (MP) 18 near the eastern 

boundary of the city of Washougal in Clark 

County and extending east through Skamania 

County to MP 98 in Klickitat County, just west of 

the unincorporated community of Maryhill. This 

segment of SR 14 is a designated scenic corridor and 

Key Viewing Area under the CRGNSA Management 

Plan. The study gives par cular focus to sites along 

the corridor that provide access to public lands 

(such as recrea onal areas).

SR 14 connects the Portland, Oregon/Vancouver, 

Washington metropolitan area at the western end 

of the Gorge with the Washington communi es 

along SR 14 of North Bonneville, Stevenson, Home 

Valley, White Salmon, Bingen, Lyle, Dallesport, and 

Wishram. The SR 14 corridor in this area is part 

of the Lewis and Clark Trail Scenic Byway, which 

follows the north bank of the Columbia River and 

provides access to dozens of recrea on sites. The 

corridor has historically carried substan al tourism 

and recrea onal traffi c and is a key economic link 

for the rural communi es in the Gorge on the 

Washington side.

SR 14

The Dog Mountain and Augspurger Mountain Trail 

System (commonly referred to as the Dog Mountain 

trail system) is accessible from SR 14 at MP 53.7 on 

the north side of the highway, approximately 10 

miles east of the city of Stevenson (see Figure 3).

The Dog Mountain component of the study area 

includes the exis ng gravel parking lot and adjacent 

USFS lands that could poten ally serve as a site for 

trailhead and parking lot reloca on. Dog Mountain is 

also a designated Key Viewing Area iden fi ed in the 

CRGNSA Management Plan.

Dog Mountain

Study Area
16 SR 14 and Dog Mountain Congestion and Safety Study

Figure 3: Dog Mountain Trailhead Parking Lot

I n t r o d u c t i o n
Policy and Planning Context
this page intentionally left blank
SR 14 and Dog Mountain Congestion and Safety Study 19

Policy and Planning Context

The CRGNSA is the largest Na onal Scenic Area in the United States. The Na onal Scenic Area Act, which 

was passed into law by Congress in 1986 was passed to ensure that the scenic, natural, cultural, and 

recrea on resources within the CRGNSA would be protected. Under the act, the Na onal Scenic Area 

Management Plan (CRGNSA Management Plan) was created in 1991 to ensure that the land within the 

CRGNSA is used in accordance with the purposes and standards of the Na onal Scenic Area Act.

The CRGNSA Management Plan was revised in 2020 and the fi ve implemen ng coun es have incorporated 

the revised Management Plan into their county ordinances. Both the revised Management Plan and the 

revised county land use ordinances have received concurrence from the Secretary of Agriculture.

Columbia River Gorge National Scenic Area Management Plan

P o l i c y & P l a n n i n g C o n t e x t

General and Special Management Areas

The Columbia River Gorge Commission and the coun es within the CRGNSA grant land use approvals jointly 

according to uses outlined in the CRGNSA Management Plan. The CRGNSA includes three dis nct areas: 

General Management Areas, Special Management Areas, and Urban Areas (see Figure 4). The 13 Urban Areas

(nine in Washington and four in Oregon) are exempt from regula ons that apply to the General and Special 

Management Areas. The USFS is the principal landowner for Special Management Areas, wherein uses are 

generally more restricted than in the designated General Management Areas. 

Land use varies throughout the study area, though it is primarily classifi ed as one of the following four land

use designa ons: 

1. Agriculture

2. Forest/Woodland

3. Open Space

4. Urban Area/Rural Center

Along the western segment of the study area, the primary land use designa on is Forest/Woodland 

and is managed by USFS. Though the en re study area sits within the CRGNSA, the western segment 

runs through Beacon Rock State Park as well. Nearer the center of the study area, around the ci es of 

Stevenson and Carson, land use designa ons primarily include Urban Area/Rural Center and Commercial 

Forest classifi ca ons. East of the community of Lyle, land use designa on becomes primarily Agriculture,

where small towns along SR 14 are classifi ed as Rural Center and several undesignated allotments are 

classifi ed as Bureau of Indian Aff airs (BIA) land.

Coyote Wall
20 SR 14 and Dog Mountain Congestion and Safety Study P o l i c y & P l a n n i n g C o n t e x t

Figure 4: CRGNSA General Management Area, Special Management Area, and Urban Area Designations
P o l i c y & P l a n n i n g C o n t e x t SR 14 and Dog Mountain Congestion and Safety Study 21

Table 2: Parking Provisions for Special and General Management Areas within the CRGNSA

Recreational 

Intensity 

Class

å

Very Low Intensity

ç

Low Intensity

é

Moderate Intensity

è

High Intensity

General 

Management 

Area

• Parking for 

maximum of 10 

vehicles

• Mass transit 

accommodations 

should be considered 

(e.g., bus parking)

• Parking for maximum 

of 25 vehicles

• Mass transit 

accommodations 

should be considered 

(e.g., bus parking)

• Parking for maximum of 75 

vehicles

• Mass transit accommodation 

is required (e.g., bus parking)

• Parking for maximum of 250 

vehicles

• Mass transit 

accommodations should 

be considered (e.g., bus 

parking)

Special 

Management 

Area

• Parking for 

maximum of 10 

vehicles

• Parking for maximum 

of 25 vehicles

• Parking for maximum of 

50 vehicles (Parking for 75 

vehicles may be provided 

if enhanced mitigation is 

approved for at least 10% of 

the site)

• Mass transit accommodation 

is required (e.g., bus parking)

• Parking for maximum of 200 

vehicles (Parking for 250 

vehicles may be provided 

if enhanced mitigation is 

approved for at least 20% of 

the site)

• Mass transit accommodation 

is required (e.g., bus parking)

Source: Draft Management Plan for the Columbia River Gorge National Scenic Area, September 2020

The Management Plan also provides specifi c 

guidance related to the protecÅ on of scenic quality 

on lands seen from key viewing areas (KVAs), 

the maintenance of exisÅ ng landscape seç ngs, 

the establishment of scenic travel corridors, 

and signage. Scenic guidelines are intended to 

emphasize the protecÅ on and enhancement of 

Gorge landscapes as seen from KVAs, protect scenic 

travel corridors (including SR14) by maintaining 

their rusÅ c character, and minimize visual impacts 

of development and signage. Popular recreaÅ on 

Scenery Guidelines

The CRGNSA Management Plan provides guidelines 

related to development for four “recreaÅ on 

intensity classes” (RICs) in General Management 

Area and Special Management Area lands. The RIC 

dictates the allowable recreaÅ on development and 

uses. A RIC of 1 indicates that the area is suitable 

for very low intensity recreaÅ on and has more 

stringent guidelines than a RIC of 4, which indicates 

the area is suitable for high intensity recreaÅ on. 

With respect to this study specifi cally, the RIC of a 

recreaÅ on site plays an important role in defi ning 

the limits of development. Table 2 describes the 

parking provisions for each RIC.

Guidelines Relating to Transportation Facilities

Recreation Intensity Classes sites within the study area are o! en visible from 

mulÅ ple KVAs. The scenic standards for proposed 

development will be dependent on both the 

Landscape Seç ng and the Land Use DesignaÅ on. 

Strategies involving development will be evaluated 

for consistency with Management Plan guidelines.

Other parking requirements in the CRGNSA include: 

• Parking areas must be designed to fi t existing topography to the 

extent possible. 

• Parking areas of more than 50 spaces must be divided into discrete 

parking areas, separated by landscaped parking islands. 

• Landscape buff ers are required, with a greater buff er for larger 

parking lots. 

• The minimum width of interior landscaped buff ers separating 

each area of 50 parking spaces or less must be at least 20 feet.

• All parking areas must be set back from property boundaries and 

right-of-way lines by at least 50 feet.

• Parking areas must be set back from the Columbia River and major 

tributaries by at least 100 feet. The required buff er varies based 

on land use designation and whether the body of water is fi sh 

bearing.

Additional relevant transportation policies and provisions include: 

• Alternate forms of transportation, such as transit, are strongly 

encouraged. 

• New development and reconstruction of scenic routes must 

include provisions for bicycle lanes.

• New development and reconstruction of parking areas must 

include provisions for bicycle parking.
22 SR 14 and Dog Mountain Congestion and Safety Study

WSDOT State Highway and Active Transportation Plan Guidance

Washington State Policy and Plan Oversight

Every four years the Washington Transporta on Commission is required to prepare or update a comprehensive 

and balanced statewide transporta on policy plan, currently refl ected in the Washington Transporta on 

Plan 2040 and Beyond (WTP 2040). The Washington State Transporta on Commission and Washington 

State Department of Transporta on (WSDOT) developed goals and objec ves based on agency and public 

input. WTP 2040 includes recommenda ons to increase revenues dedicated to transporta on system 

safety educa on and enforcement ac vi es, increases in reliable mul modal travel for people and goods 

in communi es across the state, and encouraging the design and development of communi es that make 

walking and biking more viable for more people and increase opportuni es for ac ve travel for all ages.

P o l i c y & P l a n n i n g C o n t e x t

2007-2026

Washington

State Highway 

System Plan 

(HSP)

Element of WTP 2040 that addresses current and forecasted highway needs, administers policy on highway 

functional classifi cation and access management. The HSP identifi es all needs consistent with the WTP as set by 

the Legislature, and is constrained to available revenue projections. The HSP is updated every two years includes 

constrained lists of identifi ed congested highway segment needs, specifi c prioritized strategies for addressing 

them, and performance measurements to determine the eff ectiveness of these strategies.

The current HSP update is expected to be completed and adopted by the Washington State Transportation Commission 

in 2022.

Strategic

Highway

Safety Plan

(2019 Target Zero)

2019 Target Zero supplements the HSP with a focus on safety, and includes recommendations to reduce highway 

speeds in select areas through design and speed limits, addressing highway crossings, and providing infrastructure 

that reduces the likelihood of a crash occurring and the severity of a crash if one does occur. 

2020 Washington State Active

Transportation 

Plan (ATP)

The ATP assesses the statewide needs of active transportation users: people who walk, run, use a mobility assistive 

device such as a wheelchair, cycle, or use scooters or skateboards. The ATP focuses on multimodal network 

connectivity and describes eff ects of infrastructure decisions on safety and mobility. The ATP provides criteria for 

prioritizing and evaluating investments, and recommends strategies for each of its fi ve goals of connectivity, safety, 

opportunity, participation, and partnerships.

2016 Washington 

State Public

Transportation 

Plan (PTP)

The PTP places particular priority on the need to increase the person-carrying capacity of key Washington 

transportation corridors to decrease congestion, support special needs transportation, connect communities with 

transit and expand local options for transit funding authority. To better connect Washington communities, the PTP 

supports the integration of local and state human services transportation plans, regional and local transportation 

and comprehensive plans, and regional and local transit plans in order to increase mobility options within an 

integrated and accessible system.

Statewide Transportation Policy Goals

• Economic Vitality - Promote and develop transportation systems that stimulate, support, and enhance the movement of people 

and goods to ensure a prosperous economy.

• Preservation - Maintain, preserve and extend the life and utility of prior investments in transportation systems and services.

• Safety - Provide for and improve the safety and security of transportation customers and the transportation system.

• Mobility - Improve the predictable movement of goods and people throughout Washington State, including congestion relief and 

improved freight mobility.

• Environment and Health - Enhance Washington’s quality of life through transportation investments that promote energy conservation, enhance healthy communities and protect the environment.

• Stewardship - Continuously improve the quality, eff ectiveness and effi ciency of the transportation system.

WSDOT develops and administers mul ple long range modal, safety, infrastructure and community 

engagement plans suppor ng the goals of WTP 2040. Plans most relevant to the SR 14 and Dog Mountain 

Conges on and Safety Study are noted here.

WTP 2040
P o l i c y & P l a n n i n g C o n t e x t SR 14 and Dog Mountain Congestion and Safety Study 23

Bi-State Public Transportation Planning 

The Gorge Regional Transit Strategy is currently 

being developed in coordina on between transit 

agencies in Hood River, Wasco and Sherman 

coun es in Oregon and Skamania and Klickitat 

coun es in Washington. The fi rst phase of the 

Strategy was completed in 2021, culmina ng with 

confi rmed vision and goals that stress need for high

quality services for residents and visitors in the 

Gorge, environmental stewardship and fi nancial 

sustainability for expanded and coordinated public 

transporta on services. 

The second phase of study will be completed in 

2023 and seeks plans and marke ng strategies to 

integrate transit providers as a bi-state, regional

system where riders can travel the Gorge with a 

common bus pass is a necessary. The ul mate 

objec ves of the Transit Strategy will help the 

region achieve its goals to reducing car emissions, 

lessen traffi c on I-84 and SR 14, reducing parking in 

the small towns of the Gorge, and providing easier 

access to transit for the public.

Ongoing Transportation Plans Aff ecting SR 14 and

the Gorge

State Highway Design

There are several regional transporta on plans 

that guide mul modal transporta on systems 

development along SR 14 in the study corridor.

The design of poten al intersec on or highway 

segment projects along SR 14 as implementa on 

from the SR 14 and Dog Mountain Conges on and 

Safety Study will follow the 2021 Washington Design

Manual. The Design Manual provides policies, 

procedures, and methods for developing and 

documen ng the design of improvements to the 

state highway transporta on network. The Design 

Manual emphasizes prac cal design as a means to 

produce environmentally conscious, sustainable, 

context-based designs that achieve the purpose and 

need for the lowest cost. Prac cal design considers 

the needs of all users, fostering livable communi es 

and modally integrated transporta on systems used 

safely by all, including motorists, freight haulers, 

transit, pedestrians, and bicyclists.

The Skamania and Klickitat Regional Transporta on 

Plans (RTP, 2018) provide for mul modal strategies

and solu ons to meet regional travel demand and 

to develop a balanced regional transporta on 

system over a 20-year planning period in each 

county. SR 14 is iden fi ed as a highway of statewide 

signifi cance in both RTPs and projects specifi c to 

SR 14 are iden fi ed and then programmed in the 

local Transporta on Improvement Program (TIP) 

for funding and eventual construc on. In Klickitat

County, several sidewalk improvement projects are 

iden fi ed along SR 14 in Bingen and Lyle. In Skamania 

County, SR 14 is iden fi ed for shoulder widening 

county-wide to improve motorist and bicycle 

safety. The RTPs are supported by the Washington 

Department of Transporta on and par cipa ng 

local, county and regional agencies. Updates to 

both RTPS are underway and should be completed 

in 2023, incorpora ng community outreach and 

intergovernmental coordina on processes that 

impact broader intercity travel along SR 14 that are 

beyond the more focused purpose of the SR 14/Dog 

Mountain Conges on and Safety Study.

Regional Multimodal Plans

The SR 14 Corridor Management Plan (1997), a 

joint planning eff ort between WSDOT and the 

Southwest Washington Regional Planning Council, 

iden fi es a series of policies and projects guiding 

mobility, safety and management projects and 

their funding on SR 14 throughout Skamania and 

Klickitat coun es. Por ons of the Plan have been

implemented by WSDOT over  me. The Plan 

con nues to inform both the Skamania and Klickitat

County RTPs. Findings of the SR 14/Dog Mountain 

Conges on and Safety Study do not alter the SR 14 

Corridor Management Plan, but rather implements 

its broader policy objec ves.
this page intentionally left blank
Coordination
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SR 14 and Dog Mountain Congestion and Safety Study 27

Coordination

The content prepared for this study was based on input from the project partners (FHWA, USFS, and 

WSDOT), stakeholders, and the public. Consulta on and coordina on with and input from these groups 

was vitally important throughout the study planning process.

Led by the project partners, the study was guided by the CPT, 

which included representa ves from FHWA, USFS, WSDOT, and 

consultant DEA. The CPT met regularly to discuss study needs and 

review fi ndings.

The primary role of the stakeholder group was to provide feedback 

to the CPT by reviewing technical fi ndings, genera ng informa on 

to inform the development of poten al strategies, and helping 

to iden fy partnership/implementa on opportuni es. The 

stakeholder group met three  mes throughout the dura on of the 

study and included representa ves from the following agencies 

and organiza ons:

Project Partners and Core Project Team

Stakeholder Participation

• U.S. Army Corps of Engineers

• U.S. Fish and Wildlife Service (USFWS)

• Washington State Parks

• Clark County

• Klickitat County

• Skamania County 

• Port of Klickitat

• Port of Skamania

• Port of Hood River

• Mid-Columbia Economic Development District

• Confederated Tribes of Warm Springs

• Yakama Nation

• Nez Perce Tribe

• Confederated Tribes of the Umatilla Indian 

Reservation

• Confederated Tribes of the Grand Ronde

• Cowlitz Tribe 

• Siletz Tribe

• Clark County Sheriff 

• Southwest Washington Regional 

Transportation Council

• Washington State Patrol

• Skamania County Sheriff 

• Klickitat County Sheriff 

• Oregon Department of Transportation

• Friends of the Columbia River Gorge

• C-Tran

• Bonneville Power Administration 

• Columbia River Gorge Commission

• January 2021

• Project kickoff 

• Preliminary assessment 

of needs/issues

• September 2021

• Review draft strategies

• Gather feedback on 

feasibility

• January 2022

• Review draft study 

report

Stakeholder Meeting 1 Stakeholder Meeting 2 Stakeholder Meeting 3

C o o r d i n a t i o n

Tribal Consultation

The study recognizes the Columbia River Gorge has been home to Indian people since “ me immemorial”. 

In addi on to including tribes in the stakeholder group, the project partners consulted with tribes on a 

government-to-government basis. These tribes included the Confederated Tribes of the Warm Springs, and

Yakama Na on, Nez Perce Tribe, the Confederated Tribes of Uma lla Indian Reserva on, the Confederated 

Tribes of the Grand Ronde, the Cowlitz Tribe and the Siletz Tribe. In February 2022, FHWA sent le! ers to the 

Chairperson of each tribe reques ng government-to-government consulta on.
28 SR 14 and Dog Mountain Congestion and Safety Study

Throughout the planning process, the public was provided opportunity to engage with the CPT. There 

were three primary avenues for par cipa on during the development of the study: online open houses, 

aÅ endance at virtual community conversa ons, and comments submiÅ ed by way of the study’s project 

website and email to the CPT.

Appendix C includes a full summary of the public 

involvement process and outcomes.

Public Involvement

Postcards

At the onset of project, postcards were mailed to all 

property owners within the study corridor to introduce the 

planning process, share the project website and contact 

emails. A postcard was also mailed to announce the draft 

study and collet public comment.

Community Conversations

There were two opportunities for the public to virtually 

"drop in" and ask questions of the project team.

Website

The project website served as a resource for project 

information, duration of the study, and also served to 

host the virtual public open houses.

C o o r d i n a t i o n

SR 14 and Dog Mountain Trailhead 

Conges on and Safety Study
Needs Assessment
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SR 14 and Dog Mountain Congestion and Safety Study 31

Needs Assessment

The Columbia River Gorge is a valuable resource to residents and tourists of the Portland and Vancouver 

metropolitan areas and communi es in the Gorge. The area has become a popular tourism des na on 

that aÅ racts both na onal and interna onal visitors. The Pacifi c Crest Na onal Scenic Trail runs from 

Mexico all the way north to Canada and crosses the Columbia River Gorge at the Bridge of the Gods, which 

is one of the many aÅ rac ons in the area. On the Washington side, SR 14 provides access to recrea onal 

ac vi es such as hiking, mountain biking, fi shing, wind surfi ng, bird watching, picnicking, and sightseeing. 

The landscape along SR 14 and throughout the Gorge is drama c and varied, featuring mountains, fi elds, 

wildfl owers, marshlands, wildlife refuges, and the Columbia River Gorge itself.

As the Columbia River Gorge con nues to gain na onal and interna onal recogni on as a popular recrea on 

and tourism des na on, and as the surrounding metropolitan areas con nue to grow, it is expected that 

the Gorge will con nue to see an increase in recrea on and tourism visitors, ac vi es, and services.

Day use hiking and sightseeing is the most 

popular ac vity and centered at various trailheads 

throughout the Gorge. Trailhead facili es 

include parking, picnic areas, restrooms, garbage 

receptacles, informa onal bulle n boards and 

other ameni es. There are also overnight camping 

areas that gain greater popularity during the 

summer months. 

Given the rural loca on of most of the trailheads, 

and the lack of frequent public transit service, 

the primary mode of transporta on is a personal 

vehicle, presen ng a con nued need for 

adequate trailhead parking or accommoda on 

of shuÅ le service vehicles. Parking area capacity 

and condi ons vary depending on the trailhead 

loca on and range from gravel-surfaced areas, 

to shoulder parking with limited ameni es, to an 

asphalt-paved parking lot with covered picnic areas 

and abundant day-use ameni es. Regardless of the 

capacity and condi ons, most trailhead parking 

areas reach maximum capacity on the weekend 

throughout the summer season, and there are an 

increasing number of days when liÅ le to no parking 

is available for most of the day. 

Table 3 summarizes the popular recrea on sites 

accessible within the study area, the access loca on 

along SR 14, the opera ng agency, parking details, 

and important land use informa on.

Recreational Setting

Recreation Sites

Dog Mountain Trail Spring Wildfl owers

N e e d s A s s e s s m e n t
32 SR 14 and Dog Mountain Congestion and Safety Study

Table 3: Special Management Area and General Management Area Parking Provisions

Site SR 14

MP County OperatedBy Fee/Parking RIC1 LandUse

Parking

Overfl ow2

Steigerwald National Wildlife 

Refuge 18.2 Clark USFWS No fee/Paved parking area 3 GMA No

Ozone Climbing 23.8 Skamania Informal No fee/Park on SR 14 shoulder 1/2 SMA Yes

Cape Horn Lookout 

(Viewpoint) 25 Skamania WSDOT No fee/Paved parking area 1 SMA Yes

Cape Horn Trailhead/

Salmon Falls Park and Ride 26.4 Skamania USFS/Skamania No fee/Paved parking area 2 GMA Yes

St. Cloud 29.9 Skamania USFS Fee/Pavedparking area 2 SMA No

Franz Lake Overlook 31.5 Skamania USFWS No fee/Park on SR 14 shoulder 1 GMA No

Sams Walker Day Use 32.9 Skamania USFS Fee/Gravel parking area 2 SMA No

Doetsch Ranch Day Use Area 34.1 Skamania WA State 

Parks Fee/Gravel parking area 4 SMA No

Beacon Rock State Park 

(Kueffl er Rd) 34.8 Skamania WA State 

Parks Fee/Gravel parking area 4 SMA Yes

Beacon Rock Trailhead/

Hamilton Mountain Access 34.9 Skamania WA State 

Parks

No fee/Gravel and

paved parking area 3-4 SMA Yes

Bonneville Discovery Trails 37.6 Skamania

Bonneville 

Trails 

Foundation

No fee/Paved parking area N/A UA No

Ft. Cascades Trailhead 38.6 Skamania USACE No fee/Paved parking area N/A UA No

Bonneville Trailhead 39.8 Skamania USFS Fee/Paved parking area N/A UA No

Pacifi c Crest Trail 41.5 Skamania USFS None 1 GMA No

Bridge of the Gods Historical 

Marker 41.6 Skamania USACE No fee/Paved parking area 1 GMA No

Home Valley Park/Campground 50.1 Skamania Skamania Fee/Paved parking area 4 SMA No

Dog Mountain Trailhead 53.7 Skamania USFS Fee & Seasonal Permit/Gravel 

Parking 1/2/4 SMA Yes

Dog Creek Falls 55 Skamania USFS No fee/Gravel parking area 1/2 SMA No

Little White Salmon

National Fish Hatchery 56.9 Skamania USFWS No fee/Paved parking area 1 GMA No

Drano Lake Boat Ramp 57.3 Skamania Skamania Fee/Paved parking area 2/4 GMA Yes

N e e d s A s s e s s m e n t
SR 14 and Dog Mountain Congestion and Safety Study 33

Site SR 14

MP County OperatedBy Fee/Parking RIC1 LandUse

Parking

Overfl ow2

Swell City 61.1 Skamania Private/

WSDOT No fee/Paved parking area 4 GMA Yes

Spring Creek Fish Hatchery State 

Park 61.4 Skamania WA State Parks Fee/Paved parking area 4 GMA No

Coyote Wall Trailhead 69.7 Klickitat USFS No fee/Paved parking area 2 SMA Yes

East Syncline Trailhead/

Rowland Lake 70.9 Klickitat USFS No fee/Gravel shoulder 1/2 SMA Yes

Catherine Creek (Old Hwy 8) 

Trailhead N/A Klickitat USFS No fee/Gravel parking area 2 SMA Yes

Chamberlain Lake Safety Rest 

Area 74 Klickitat WSDOT No fee/Paved parking area 1 GMA No

Balfour-Klickitat Trailhead (Old 

Hwy 8) N/A Klickitat USFS No fee/Paved parking area 2 GMA No

Klickitat River Delta (Klickitat 

Spit) 75.7 Klickitat Informal No fee/Gravel shoulder 2 GMA Yes

Lyle Trailhead 75.9 Klickitat USFS No fee/Paved parking area N/A UA No

Lyle Cherry Orchard Trailhead 77.2 Klickitat

Friends of 

Columbia River 

Gorge

No fee/Gravel parking area 1 GMA No

Doug’s Beach State Park 78.6 Klickitat WA State 

Parks Fee/Gravel parking area 4 GMA No

Columbia Hills Historical State 

Park 85.1 Klickitat WA State Parks

Fee/Paved & gravel parking 

areas

4 GMA No

Horsethief Butte Trailhead 86.4 Klickitat WA State 

Parks Fee/Paved parking area 2 GMA No

Crawford Oaks Trailhead 87.2 Klickitat WA State 

Parks Fee/Paved parking area 2 GMA No

Avery Recreation (State Park) Boat 

Launch 89.6 Klickitat USACE No fee/Gravel parking area BIA GMA No

Notes: 

1. RIC is identifi ed for the parking area; the RIC of the recreational area may be diff erent. 

2. Indicates recurring parking lot overfl ow resulting in parking on shoulder of adjacent county roads or SR 14.

Acronyms: MP = mile post; RIC = recreation intensity class; USFWS = United States Fish and Wildlife Service; USFS = United States Forest Service; 

WSDOT = Washington Department of Transportation; USACE = United States Army Corps of Engineers; SMA = Special Management Area; GMA = General 

Management Area; 

UA = Urban Area; N/A = not applicable; BIA = Bureau of Indian Aff airs

Table 3 (continued)

N e e d s A s s e s s m e n t
34 SR 14 and Dog Mountain Congestion and Safety Study

Recurring Congestion and Parking Overfl ow

Summary Findings at Recreation Sites

The following sec on highlights summary fi ndings of the Needs Assessment at each of the eight 

recrea on sites with recurring parking overfl ow and conges on.

Dog Mountain Trailhead: Congested parking lot during peak hiking season.

Overfl ow parking often spills onto the highway at Catherine Creek. Hikers commonly walk on the highway at Catherine Creek.

Of the recrea on sites summarized in Table 3, several experience recurring instances of parking overfl ow 

that result in visitors parking on the shoulder of SR 14 or the adjacent county road. These condi ons are 

described and tabulated in further detail on the following pages.

The tabulated informa on for each recrea on site reference abbreviated terms that require defi ni on 

here: 

AADT stands for annual average daily traffi c, and is expressed in number of vehicles per day (veh/day) in 2019 

and the projected number of vehicles per day in 2040.

Parking Space “Type” refers to whether parking spaces are either “striped,” which have lines on the parking 

surface to indicate where to park, or “unstriped,” which do not have such lines on the parking surface.

ADA refers to marked parking spaces that meet the requirements of the Americans with Disabili es Act (ADA). 

Two recrea on sites listed in Table 3 have concerns regarding overfl ow parking onto the shoulder of 

SR 14 that are not detailed further in this chapter: Ozone Climbing and Klickitat River Delta. These 

two loca ons are not currently associated with a formally sanc oned recrea on site, although both 

are recognized as a heavily u lized resource by the recrea on community in the CRGNSA. Addi onal 

considera ons are provided for these two unique sites at the end of the Safety and Conges on Toolkit

chapter.
N e e d s A s s e s s m e n t SR 14 and Dog Mountain Congestion and Safety Study 35

Key 

Findings

Amenities Location SR 14: MP 25

Cape Horn Viewpoint Parking

Peak Use Year-round

(days with visibility)

AADT* 2019: 5,175 veh/day

2040: 9,975 veh/day

Fee/Permit No Fee

Jurisdiction WSDOT

• Available parallel parking shoulder width varies from 10 feet to 15 feet, and there are 

no barriers from eastbound SR 14 traffi c

• Guardrail is the only barrier between shoulder and cliff edge

• Parking within WSDOT right-of-way

• No advanced signage to indicate vehicles entering/leaving highway

• Area surrounded by steep grades and curves with limited sight distance

Day Use Picnic Area —

Water Sta on —

Informa on Kiosk —

Restrooms —

* Annual Average Daily Traffi c (AADT)

Parking Type: Paved 

Shoulder

Space Type

Striped

Unstriped

ADA

# Spaces

0

8

0

Cape Horn Viewpoint
36 SR 14 and Dog Mountain Congestion and Safety Study

Key Findings

Amenities

Park and Ride Parking

• Parking is shared with Salmon Falls Park and Ride

• Trail is extremely popular year-round

• Parking lot typically fi lls up around mid-morning on weekends, addiÅ onal vehicles 

park on the shoulder of Salmon Falls Rd and Canyon Creek Rd

• Busiest between 8 am and 3 pm

Day Use Picnic Area —

Water Sta on —

Informa on Kiosk

Restrooms

Parking Type:

Paved Lot

Space Type

Striped

Unstriped

ADA

# Spaces

25

6

2

Cape Horn Trailhead

N e e d s A s s e s s m e n t

Location SR 14: MP 26.4

Peak Use Spring/Summer/Fall

AADT* 2019: 5,175 veh/day

2040: 9,975 veh/day

Fee/Permit No Fee

Jurisdiction USFS (Trail), 

Skamania Co. (Lot)

* Annual Average Daily Traffi c (AADT)
SR 14 and Dog Mountain Congestion and Safety Study 37

Key Findings

Amenities

• High vehicle speeds through park

• Limited sight distance at SR 14 access points

• Vehicular circula on does not meet modern standards

• Pedestrians crossing SR 14 have poor visibility of oncoming traffi c

• Narrow lanes and shoulders

• Vehicles parking along SR 14 shoulders results in pedestrians walking along highway 

travel lanes

• Uncontrolled access to parking lots from SR 14

Day Use Picnic Area

Water Sta on

Informa on Kiosk

Restrooms

Parking Type:

Paved Lot

Space Type

Striped

Unstriped

ADA

# Spaces

27

20-25

2

Parking Area

Beacon Rock State Park

N e e d s A s s e s s m e n t

Location SR 14: MP 34.8

Peak Use Summer

AADT* 2019: 4,500 veh/day

2040: 7,675 veh/day

Fee/Permit Day or Annual 

Discover Pass

Jurisdiction WA State Parks

* Annual Average Daily Traffi c (AADT)
38 SR 14 and Dog Mountain Congestion and Safety Study

Key Findings

Amenities

• Lot reaches maximum capacity by 10 am on weekends in May and June

• No nearby parking alterna ves

• Vehicular circula on does not meet modern standards

• Vehicles park along SR 14 and pedestrians walk along highway

• Uncontrolled access to lot with limited sight distance to east

• Ongoing eff orts, including shuç le services and implementa on of a permit system 

have alleviated many of the conges on-related concerns during peak season, 

although the proximity of pedestrians to SR 14 is s ll a safety concern

• Some of exis ng parking lot is located on a BNSF easement

Day Use Picnic Area

Informa on Kiosk

Restrooms

Parking Type:

Gravel Lot

Space Type

Striped

Unstriped

ADA

# Spaces

70

3-5

2

Trailhead Parking

Dog Mountain Trailhead

N e e d s A s s e s s m e n t

Location SR 14: MP 53.7

Peak Use Spring

AADT* 2019: 3,925 veh/day

2040: 7,150 veh/day

Fee/Permit

Day use or annual USFS 

pass, additional permit 

required in spring

Jurisdiction USFS

* Annual Average Daily Traffi c (AADT)

Water Sta on —
N e e d s A s s e s s m e n t SR 14 and Dog Mountain Congestion and Safety Study 39

Drano Lake Boat Ramp

Key Findings

Amenities

• Parking lot exclusively designated for tow vehicle and boat trailer combina on; single 

vehicles not allowed, and some park on SR 14 instead

• Overfl ow onto SR 14 causes pedestrians to cross the highway

• Inability to expand parking in current loca on

Day Use Picnic Area —

Water Sta on

Informa on Kiosk —

Restrooms

Parking Type:

Paved Lot

Space Type

Striped

Unstriped

ADA

# Spaces

70

0

3

Parking Area

Location SR 14: MP 57.3

Peak Use Fishing Season

AADT* 2019: 3,500 veh/day

2040: 6,525 veh/day

Fee/Permit Day or Annual 

(boat launch)

Jurisdiction Skamania Co.

* Annual Average Daily Traffi c (AADT)
40 SR 14 and Dog Mountain Congestion and Safety Study

Key Findings

Amenities

• Popular windsurfi ng locaÅ on

• Two privately owned launch areas and one WA launch area closer to Spring Creek 

State Park

• Windy days and weekends fi ll parking quickly

• AddiÅ onal gravel area opposite Spring Creek Hatchery Rd provides overfl ow parking 

but requires pedestrians to cross SR 14

Day Use Picnic Area

Water Sta on —

Informa on Kiosk —

Restrooms

Parking Type:

Gravel Lot

Space Type

Striped

Unstriped

ADA

# Spaces

0

20-30

0

Parking Area

Swell City

N e e d s A s s e s s m e n t

Location SR 14: MP 61.1-61.4

Peak Use Windy days/weekends

AADT* 2019: 3,700 veh/day

2040: 5,100 veh/day

Fee/Permit Day or annual pass

Jurisdiction Private (Swell City)

* Annual Average Daily Traffi c (AADT)
N e e d s A s s e s s m e n t SR 14 and Dog Mountain Congestion and Safety Study 41

Key Findings

Amenities

• Popular mountain biking and hiking loca on

• RIC Class 2 limits parking at Coyote Wall to 25 vehicles

• Overfl ow parking fi lls the shoulder of Courtney Rd and causes pedestrians to cross 

the roadway

• Conges on creates diffi culty for freight and vehicle movement on Courtney Rd

• GPS can lead visitors to shoulder of SR 14 between Coyote Wall and East Syncline

• Intersec ons of Courtney Rd and Old Highway 8 at SR 14 fl agged for safety concern

Day Use Picnic Area —

Water Sta on —

Informa on Kiosk

Restrooms

Parking Type:

Paved Lot

Space Type

Striped

Unstriped

ADA

# Spaces

25

0

1

Parking Area

Coyote Wall Trailhead/East Syncline

Location SR 14: MP 69.7

Peak Use Spring/Fall

AADT* 2019: 4,900 veh/day

2040: 8,725 veh/day

Fee/Permit None

Jurisdiction USFS

* Annual Average Daily Traffi c (AADT)
42 SR 14 and Dog Mountain Congestion and Safety Study

Catherine Creek

Key Findings

Amenities

• Peak spring wildfl ower viewing area

• Includes network of shared use trails for hiking and including an accessible, paved 

loop trail

• Peak season overfl ow onto Old Hwy 8 that hinders through traffi c and degrades 

visiç ng experience

• Through traffi c travels at high speeds and limited sight distances on Old Hwy 8 

(because of topography)

• Lacking clarity of pedestrian wayfi nding

• RIC Class 2 limits formalized parking to 25 vehicles

• Lacks accessible parking despite presence of trailhead to one of the only accessible 

trails in the Gorge

Day Use Picnic Area —

Water Sta on —

Informa on Kiosk

Restrooms —

* There are also several gravel pullouts along Old Hwy 8, cumulatively, space 

for more that the 20-25 vehicles that park immediately adjecent to trailhead

Parking Type:

Gravel Lot

Space Type

Striped

Unstriped

ADA

# Spaces

0

20-25*

0

Parking Area

N e e d s A s s e s s m e n t

Location SR 14: MP 70.9

Peak Use Spring

AADT* County road data not 

available

Fee/Permit None

Jurisdiction USFS (trailhead), 

Klickitat Co. (Old Hwy 8)

* Annual Average Daily Traffi c (AADT)
N e e d s A s s e s s m e n t SR 14 and Dog Mountain Congestion and Safety Study 43

The informa on in this sec on summarizes the key informa on from the Exis ng Condi ons Report 

(Appendix A), which iden fi es roadway condi ons and areas of concern for the SR 14 corridor in the 

study area. The Exis ng Condi ons Report is based on a planning-level examina on of online databases, 

fi eld observa ons, historical traffi c data, vehicle crash history, aerial imagery, and geographic informa on 

system data.

Within the study area, SR 14 is func onally classifi ed as a rural principal arterial by WSDOT and is part of 

the Na onal Highway System. These designa ons suggest that an important objec ve of the corridor is 

to connect rural communi es and effi ciently move traffi c over long distances. While it serves as a cri cal 

state highway connec ng eastern and western Washington, SR 14 also operates as a “main street” through

several communi es in the Gorge and as the primary access to popular recrea on areas. 

SR 14’s dual purpose as both a major highway and a local main street creates the need to serve both 

regional and local trips in the corridor. Although residents rely on the corridor for daily shopping, social 

and work related trips, it must also accommodate regional auto and freight trips passing through the 

CRGNSA, as well as recrea onal travel by various modes. In addi on to the numerous users, the corridor

has unique geometric and topographical characteris cs that pose challenges to conges on and safety.

Posted speeds vary along SR 14. Outside of urban areas, which is where most of the accesses to recrea on 

sites are located and where parking on the shoulder of SR 14 occurs, the posted speed ranges from 50 

miles per hour (mph) to 60 mph. As SR 14 travels through various communi es, the posted speeds vary 

from 25 mph to 40 mph.

Physical features on SR 14 are characterized by fi ve 

diff erent topographical areas. Most of the corridor 

is confi ned by rock escarpments on the north side 

and embankments to the Columbia River and/

or railroad tracks on the south side. Between 

Washougal and North Bonneville, SR 14 is elevated 

above the Columbia River, passing through rolling 

and mountainous terrain. From North Bonneville to 

Stevenson, SR 14 descends to the same eleva on as 

the Columbia River. Between Stevenson and Home 

Valley, the roadway is again elevated above the 

river, traversing primarily through forest land. From 

Home Valley to Dallesport, SR 14 again descends 

along the river. And fi nally, from Dallesport to the 

eastern edge of the CRGNSA, the route ascends 

onto a plateau overlooking the river and traverses 

primarily grasslands.

Transportation Conditions

Physical Challenges of the SR 14 Corridor

SR 14 through Cape Horn at the Western End of the 

Study Area
44 SR 14 and Dog Mountain Congestion and Safety Study

Daily Traffi c Variation

Heavy Vehicle Traffi c

Exis ng annual average daily traffi c (AADT) varies 

along SR 14 from approximately 2,000 to 12,000 

vehicles per day. The highest traffi c volumes 

consistently occur where the Hood River Bridge 

meets SR 14 in White Salmon. The bridge is one 

of the main connec ons in the region between 

Washington and Oregon.

At the western end of the study area, AADT along SR

14 is typically highest during the spring and summer 

months. As shown in Figure 5, the peak month is 

June, coinciding with higher Gorge tourism and 

recrea on site visita on.

The most congested condi ons on SR 14 are 

likely to occur in the late aç ernoon or evening 

on a weekend (Friday through Sunday) between 

May and September, par cularly in June. At the 

eastern end of the study area, the most congested 

condi ons are likely to occur in the early to midaç ernoon on summer weekends (Friday through 

Sunday) between July and August.

In addi on to serving communi es and the 

resources in the CRGNSA, SR 14 is part of 

Washington’s Freight and Goods Transporta on 

System. Because SR 14 has a narrow, single lane in 

each direc on, oversized/overweight restric ons 

apply to the corridor throughout the study area, 

requiring pilot cars for vehicles more than 10 feet 

wide in most segments. Truck traffi c averages 

approximately 15 percent of the daily traffi c 

along SR 14 within the study area. Any poten al 

strategies proposed for SR 14 will need to consider

the an cipated con nued movement of goods via 

freight trucking through the corridor.

Daily and Seasonal Travel

JAN

1,000

2,000

3,000

4,000

5,000

6,000

7,000

8,000

9,000

10,000 Average Daily Traffi c

FEB MAR APR MAY JUN JUL AUG SEP OCT NOV DEC 0

SUN

2,000

0

4,000

6,000

8,000

10,000

12,000 Average Daily Traffi c

June (Peak Summer) Annual Average - WSDOT 2019

MON TUE WED THU FRI SAT

Figure 5: Variations in SR 14 Traffi c - Washougal, WA (MP 18)

Seasonal Traffi c Variation

Given that SR 14 is the gateway to many tourist 

ac vi es that a! ract both local and non-local 

visitors, the corridor sees signifi cant seasonal 

varia on. Though transit op ons do exist on SR 

14, the current organiza onal structure limits the

scope, funding and focus of their services, resul ng 

in the primary mode of access being the singleoccupancy vehicle. Therefore, fl uctua ons in traffi c 

volumes closely follow the tourism seasonality 

within the study area, as shown in Figure 5. 

It should be noted that the peak traffi c along SR 14 

doesn’t always align perfectly with peak use  mes 

at recrea onal sites. Each recrea on site has its own 

unique features that draw visitors at various  mes 

of the year, as summarized above. For recrea on, 

the peak in the eastern part of the study area is 

spring, mainly due to the endless wildfl owers in 

bloom and ac ve bird watching. During the hot and 

dry summer months, sites in the eastern por on of 

the study area receive less use. Along the western 

part of the study area, peak ac vity occurs during 

N e e d s A s s e s s m e n t

the spring and summer months due to the various 

spor ng ac vi es and ideal outdoor weather.

Throughout the en re study area, the low season 

for both SR 14 corridor traffi c and recrea onal use 

tends to be winter, primarily January and February, 

due to the inclement weather, including heavy 

rains, high winds, and muddy hiking trails.
N e e d s A s s e s s m e n t SR 14 and Dog Mountain Congestion and Safety Study 45

Multimodal Access

Transit

Figure 6 maps the fi ve transportaÅ on providers that 

form the Gorge Translink: Mt. Adams TransportaÅ on 

Service (Klickitat County), Skamania County Transit, 

Columbia Area Transit (CAT) (Hood River County), 

the Link (Wasco County), and Sherman County 

Community Transit. Skamania County Transit also 

provides shuç le service between the Skamania 

County Fairground gravel parking lot and the Dog 

Mountain Trailhead on Saturdays and Sundays 

during the spring wildfl ower season, when 

USFS requires permits. Columbia Area Transit is 

supporÅ ng Skamania County in operaÅ ng this 

shuç le service (2021 and 2022).

Mt. Adams TransportaÅ on Services (Klickitat County) 

and Skamania County Transit (Skamania County) 

are the only two providers who regularly serve 

SR 14. Both agencies are run by their respecÅ ve 

County senior services divisions and while public 

transportaÅ on is an important part of the services 

they provide, it is not considered a core part of their 

business. Finally, since 2018, Skamania County has 

Figure 6: Gorge Translink Routes

Map Source: Gorge 

Translink

received funding in partnership with the USFS, 

FHWA and a local lodging tax to provide a shuç le 

between the Skamania County Fairgrounds gravel 

parking lot and the Dog Mountain Trailhead on 

Saturday and Sunday. In 2022, the USFS partnered 

with CAT and parÅ ally funded the shuç le with 

recreaÅ on fee dollars Despite the overwhelming 

success of this program in addressing safety, 

access, and parking concerns at the Dog Mountain 

trailhead on SR14, ongoing funding for the program 

has not been secured.

The Gorge Translink is an alliance of rural 

transportaÅ on providers, human service 

organizaÅ ons, and public planning agencies. The 

objecÅ ve of the Gorge Translink alliance is to 

enhance connecÅ vity and develop a seamless 

network of transportaÅ on services within the MidColumbia River Gorge area while linking services 

to the metropolitan ciÅ es of Portland, Oregon, and 

Vancouver, Washington.
46 SR 14 and Dog Mountain Congestion and Safety Study

Bicycle

There are no bicycle facili es that provide nonhighway connec ons between communi es in the 

study area; SR 14 is the only con nuous connec on

and may appeal only to avid cyclists. Cycling on SR 

14 presents safety concerns, par cularly on SR 

14 outside of the urban areas, where there are 

limited or no bicycle lanes or shoulder lanes, and 

high auto and truck speeds. SR 14 also has several 

unlit tunnels where cyclists are forced to share the 

road with vehicles in areas with limited visibility 

due to lack of illumina on. These condi ons make 

cycling between Gorge communi es in Washington 

prohibi ve for many. 

As men oned previously, some recrea on 

opportuni es provide mountain bike trails; however, 

the bike riders on these trails use personal vehicles 

to access trailheads. Some recrea onal road cyclists 

ride a loop of the eastern end of the CRGNSA, 

traveling on SR 14 from Hood River to the Dalles and 

back. 

Bicycle travel along the SR 14 corridor presents 

safety concerns as bicyclists are required to 

share the highway travel lanes with vehicles. 

Bicyclists may use shoulders where available, but 

the shoulders are narrow and are oÅ en used for 

overfl ow or illegal parking. Guardrail and rock 

walls parallel the highway in some areas, further 

restric ng shoulder use for bicyclists, and  ght 

curves limit sight distance in loca ons where 

motorists have liè le advanced warning of bicyclists 

on the roadway.

Pedestrian

Pedestrian use within the corridor is limited to urban 

areas and areas within or near recrea on sites. The 

rural segment of SR 14 most likely to experience 

pedestrian traffi c is where the Pacifi c Crest Trail 

crosses the Bridge of the Gods and connects to the 

trail located on USFS lands. Between the Bridge of 

the Gods and USFS lands, pedestrians must travel 

along the shoulder of SR 14 for approximately 500 

feet. Pedestrians are also prevalent at recrea on 

sites where the trailheads or recrea onal resources 

are adjacent to SR 14. Pedestrians walking from 

parked vehicles to trailheads share shoulders 

and roadway where space is limited, some mes 

crossing SR 14 in hazardous areas with limited sight

distance and high vehicular speeds.

Increasing Traffi c Congestion

The study analyzed projected transporta on 

condi ons to es mate how traffi c paè erns and 

characteris cs might change compared to exis ng 

condi ons. The analysis was based on linear trends

developed from WSDOT’s historical AADT data. On 

average, SR 14 traffi c volumes are es mated to 

increase by 60 percent by the year 2040. Figure 7 

illustrates the es mated increase in traffi c volumes 

compared to the most recent complete fi ve-year 

historical traffi c volumes. The highest increase is 

expected to occur in the White Salmon and Bingen 

areas, and near the Hood River Bridge. SR 14 would 

expect to see a consistent growth in AADT along 

the length of the corridor, with higher growth in 

urban areas and between neighboring urban areas.

1,500

3,500

5,500

7,500

9,500

11,500

13,500

15,500

17,500

18 28 38 48 58 67 77 87 97

Annual Average Daily Traffic

(vehicles per day)

Mile Post

2040

2019

Bridge of the Gods Hood River Bridge

Lyle

Stevenson

Volume Year

Figure 7: SR 14 Current and Forecasted Year 2040 Annual Average Daily Traffi c (vehicles per day)

N e e d s A s s e s s m e n t
N e e d s A s s e s s m e n t SR 14 and Dog Mountain Congestion and Safety Study 47

Safety Characteristics

The most recent fi ve years of available crash data (January 1, 2015, to December 31, 2019) was reviewed 

to idenÅ fy trends or safety concerns within the study area. Crash data was obtained from the WSDOT 

Crash Data and ReporÅ ng Branch and fi ltered to include crashes within a 500-foot distance on both sides 

of of SR 14, between mile posts 18 and 98.ç

A total of 768 reported crashes occurred in the study area; approximately 92 percent of these occurred on 

SR 14, and 8 percent on an adjacent road.

Number Of Crashes By Severity And Year Crash Type

Of the 768 reported crashes, 65 percent (498) were 

property damage only (no apparent injury); 15 

percent (115) resulted in a suspected minor injury; 

13 percent (103) resulted in a possible injury, 3 

percent (22) resulted in a suspected serious injury; 

2 percent (17) were unknown; and 1.7 percent 

(13) resulted in a fatality. Figure 8 summarizes the 

number of crashes by severity and year. 

Figure 9 shows the number of crashes that have 

occurred at a given locaÅ on, known as “crash 

density” along the corridor. As shown, crashes 

tend to be concentrated within city limits, around 

sharp curves, or near trailheads and other stopping

points along the highway. These crash pa! erns are 

consistent with a single-lane state highway and are

not unusual given the se" ng. 

Figure 10 shows the crash density and severity in the 

Dog Mountain Trailhead porÅ on of the study area. 

It shows that there was one fatality east of the Dog 

Mountain Trailhead parking lot, and three suspected

injury crashes adjacent to the access to the trailhead.

Collisions with a guardrail were the most common 

crash type throughout the study area, followed by 

rear-end collisions. These crash types are consistent 

with a scenic, winding highway with many cross 

streets, turnouts, access points, and trailheads, 

especially during the peak tourism season in which 

thousands of visitors from out of state visit, many

of whom may not be familiar with the corridor and 

may be distracted by the scenic vista, even while 

driving. Appendix A includes a detailed summary of 

the type, severity and causaÅ on of vehicle crashes in 

the corridor from 2015 through 2019.

2 Disclaimer: Under 23 United States Code (USC) § 148 and 23 USC § 409, safety data, reports, surveys, schedules, lists compiled or collected for the purpose of 

identifying, evaluating, or planning the safety enhancement of potential crash sites, hazardous roadway conditions, or railway-highway crossings are not subject to 

discovery or admitted into evidence in a Federal or State court proceeding or considered for other purposes in any action for damages arising from any occurrence at a 

location mentioned or addressed in such reports, surveys, schedules, lists, or data. This applies to the entire SR 14 and Dog Mountain Congestion and Safety Study.

Figure 8. Number of Crashes by Severity and Year: 2015-2019

0

20

40

60

80

100

120

140

160

180

2015 2016 2017 2018 2019

Number of Crashes

Fatality

Serious 

Minor I

20

40

60

80

100

120

140

160

180

2015 2016 2017 2018 2019

Number of Crashes

Fatality

Serious Injury

Minor Injury
48 SR 14 and Dog Mountain Congestion and Safety Study

Figure 9: Crash Density along SR 14 Corridor in the Study Area

Figure 10: Crash Density and Severity in the Dog Mountain Trailhead Portion of the Study 

Area

N e e d s A s s e s s m e n t
N e e d s A s s e s s m e n t SR 14 and Dog Mountain Congestion and Safety Study 49

Natural, Cultural and Scenic Resources

Scenic

Sensitive Wildlife Rare Plants

Aquatic Wetland

Forest

Cultural

Archaeological

The information contained in the Existing Conditions Report (Appendix A) and summarized in this section 

provides a planning-level overview of environmental resources and identifies potential constraints and 

opportunities for the SR 14 and Dog Mountain Congestion and Safety Study. The planning-level overview 

is not a detailed environmental investigation. The existing conditions reporting represents a scoping-level 

effort that includes information available through desktop studies and does not include site information

verified through a site visit. If this study results in improvement projects being forwarded into project 

development, a detailed analysis for consistency with the CRGNSA Management Plan, compliance with 

the National Environmental Policy Act (NEPA) and other applicable federal and state regulations will be 

completed as part of the project development process. Information provided in this study report may be 

used as guidance for the NEPA process at that time.

The CRGNSA Management Plan contains specific protections, including avoidance buffers and mitigation 

measures, for natural, cultural and scenic resources. These protections are most restrictive in areas 

designated as SMAs and in some cases are slightly less restrictive in areas designated as GMAs. In either 

case, proposed developments in the CRGNSA are required to inventory natural, cultural and scenic 

resources to ensure impacts to scenic, natural, and cultural resources are avoided. Resources with 

specific guidelines in the CRGNSA Management Plan are shown in Figure 11. The planning process also 

involves consultation with the appropriate local, state, and federal agencies.

Figure 11: CRGNSA Management Plan Resources

• New uses must be sited to avoid 

wetlands to the greatest extent 

possible. 

• Impacts to wetlands may be 

allowed only when they are 

unavoidable, in the public 

interest, and all practicable 

measures to minimize impacts 

have been applied.

• Proposed uses adjacent to 

streams, ponds, and lakes must 

preserve an undisturbed buff er 

zone that is wide enough to 

protect both the aquatic and 

riparian areas.

• For projects forwarded from this 

study, fi eld surveys would be 

required to determine potential 

impacts to any streams and 

associated riparian areas.

• Most development in the 

National Scenic Area must be 

visually subordinate to the 

landscape.

• Development should be 

screened from Key Viewing Areas 

(KVAs).

• Scenic regulations apply to 

structures, plantings and 

gradings.

• The CRGNSA consults with 

federally recognized tribes that 

are culturally and historically 

affi liated with and have ongoing 

interest in management of 

CRGNSA-administered lands. 

• Agencies must consider the 

eff ects of proposed projects on 

previously identifi ed resources 

as well as resources not yet 

identifi ed.

• USFS is required to manage for 

WDFW sensitive wildlife species 

on National Forest lands. 

• All National Forest System lands 

shall be subject to the laws 

and regulations pertaining to 

National Forest lands, including 

NEPA and the Giff ord Pinchot 

National Forest Land and 

Resource Management Plan, 

as amended by the Northwest 

Forest Plan.

• The varied landscape provides 

habitat for numerous species of 

rare plants, many of which are 

endemic to the CRGNSA.

• CRGNSA Management 

Plan policies require new 

development to ensure that rare 

plants are not adversely aff ected.

• "Sensitive wildlife sites” refers 

to sites used by species that 

are: (1) listed as endangered or 

threatened pursuant to federal 

or state endangered species 

acts, (2) listed as endangered, 

threatened, sensitive, or 

candidate by the Washington 

Wildlife Commission, (3) listed 

as sensitive by the Oregon Fish 

and Wildlife Commission, or 

(4) considered to be of special 

interest to the public.

• Information regarding the nature 

and location of archaeological 

resources and cultural resources 

associated with Native Americans 

shall be kept confi dential to avoid 

unlawful, malicious, or negligent 

disturbance.

• Before any ground-disturbing 

actions can occur in the study 

area, an archaeological fi eld 

investigation must be completed.
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Safety and Congestion Toolkit
this page intentionally left blank
SR 14 and Dog Mountain Congestion and Safety Study 53

Safety and Congestion Toolkit

A Safety and Congestion Toolkit (Toolkit) is developed for application throughout the two study areas, with 

tools and strategies to address transportation safety and congestion. These tools and strategies were

developed based on the full examination of existing conditions and future traffic demand as summarized

in the Needs Assessment, with input from the public, project partners and stakeholders noted under 

Coordination. 

The Toolkit is summarized in Table 4 and organized under eight categories, describing the tools and strategies 

that are applicable in various focus areas of the study area. Application of the Toolkit follows an adaptive 

management approach that emphasizes strategies and solutions with the least resource impact, followed 

by strategies with greater impact as needed. 

This chapter summarizes the tools and strategies recommended for implementation within three focus 

areas: (1) System Level, (2) specific SR 14 Segments, and (3) Recreation Sites. Applied Toolkit findings are 

also summarized in the Dog Mountain Trailhead Relocation chapter that follows.

Table 4: Congestion and Safety Toolkit

Category Tool/

Strategy Description Issue(s) Addressed ApplicableFocus Areas

Access

Management

Access 

consolidation

Create consolidated access point to 

parking area through aesthetically 

appropriate barrier

• Reduce traffi c “confl ict points”

• Improve driver expectancy

• Recreation Areas

• SR 14 Segments D, 

E & F

• Dog Mountain

Shoulder barrier Install guardrail/aesthetically 

appropriate barrier to block access 

to shoulder

• Prohibit parking in shoulder of 

roadway

• Channelize traffi c to preferred 

location

• Recreation Areas

• SR 14 Segments D 

& F

• Dog Mountain

Traffi c 

circulation

Indicate the preferred direction of 

travel and/or parking 

• Improve effi ciency of traffi c fl ow 

• Reduce confl ict points

• Recreation Areas

Gated access Install gate at entrance of parking 

lot or access road to limit access 

depending on desired outcome 

(e.g., indicate parking is at capacity, 

provide for transit only)

• Prohibit illegal parking • Recreation Areas

• Dog Mountain

Figure 12: Safety and Congestion Toolkit Strategies for the SR 14 and Dog Mountain Study Areas
54 SR 14 and Dog Mountain Congestion and Safety Study S a f e t y a n d C o n g e s t i o n T o o l k i t

Category Tool/

Strategy Description Issue(s) Addressed ApplicableFocus Areas

Visitor Use

Management

and

Enforcement

Implement 

permit/user fee 

(coupled with 

reservation 

system)

Establish fees for high-use sites 

without existing permit or parking 

fees

• Encourage turnover

• May reduce parking demand by 

encouraging ridesharing, use 

of transit and/or discouraging 

impulse trips

• Explore and implement options 

of technological enforcement

• Recreation Areas

Reservation 

system (coupled 

with permits)

Establish or expand a reservation 

permit system during peak 

season(s)/day(s)

• Disperse arrival and departure 

times throughout the day

• Recreation Areas

• Dog Mountain

Increased 

enforcement

Increase enforcement of illegal 

parking or non-payment (increasing 

law enforcement capacity will 

require additional resources)

• Reduce sightline obstructions 

or physical obstructions on the 

roadway caused by illegally 

parked vehicles

• Recreation Areas

• SR 14 Segments A, 

D & F

• System

• Dog Mountain

Timed parking Assign time limits to a few parking 

stalls to encourage turnover 

• Encourage turnover

• Explore and implement options 

of technological enforcement

• Recreation Areas

• Dog Mountain

Parking 

Management 

Association

Establish a nonprofi t, membercontrolled organization that 

provides parking resource 

management for the CRGNSA

• Consistent messaging/parking 

management within the 

CRGNSA

• Improve visitor expectations

• System

Traffi c 

monitoring, 

data collection, 

and analysis

Annual data collection to track 

congestion or safety issues

• Prioritize improvements

• Targeted solutions

• System

Infrastructure 

Improvements

Turn lanes or 

climbing lanes

Provide dedicated left-turn refuge 

in the median and/or right-turn 

deceleration lane into access point

• Reduce speed diff erentials/

confl ict points on main roads

• Turning-related and rear end 

collisions

• Recreation Areas 

(turn lanes)

• SR 14 Segments A 

(climbing lanes), E, F 

& G (turn lanes)

Shoulder 

widening

Widen shoulder of roadway • Provide additional separation 

between vehicle traffi c and 

bicyclists and/or pedestrians

• Reduce fi xed-object collisions

• SR 14 Segments (all, 

where feasible)

Landslide 

and rockfall 

prevention

Implement landslide and rockfall 

mitigation measures

• Improve safety of SR 14 corridor • SR 14 Segments (all, 

as needed)

Traffi c control 

changes

Evaluate diff erent intersection

control options (e.g., yield signs, 

stop signs, roundabouts, traffi c 

signals)

• Improve intersection safety

• Improve traffi c fl ow

• Recreation Areas

• SR 14 Segments A, 

B & E

Table 4: Congestion and Safety Toolkit (cont’d)
S a f e t y a n d C o n g e s t i o n T o o l k i t SR 14 and Dog Mountain Congestion and Safety Study 55

Table 4: Congestion and Safety Toolkit (cont’d)

Category Tool/

Strategy Description Issue(s) Addressed ApplicableFocus Areas

Public 

Information 

Campaigns

Visitor 

Information 

Center

Provide a one-stop location where 

visitors can park, board shuttles, 

determine where parking is available, 

pay for parking/reserve a parking spot, 

and get information on how to access 

destinations throughout the CRGNSA

• Promote less congested times 

and locations to spread demand

• Encourage various 

transportation modes

• System

Traveler 

information 

literature

Establish or expand a reservation 

permit system during peak season(s)/

day(s)

• Promote less congested times 

and locations to spread demand

• Encourage various 

transportation modes

• System

On-site outreach Staffi ng of trail ambassadors or fi eld 

rangers to inform visitors

• Promote less congested times 

and locations to spread demand

• Encourage various 

transportation modes

• System

Technology 

Systems

Real-time 

parking 

information

Use closed-circuit cameras or video 

sensors to monitor visitor demand 

management information

Some sites will pose technological/ 

connectivity challenges

• Reduce unnecessary vehicular 

trips

• Allow users to make informed 

route, mode, or destination 

choices based on conditions

• Recreation Areas

• System

• Dog Mountain

Variable Message 

Signs

Continue and expand use of 

variable message signs in urban 

areas consistent with the CRGNSA 

Management Plan

Impact of cumulative eff ects to scenic 

resources will need to be evaluated

• Allow users to make informed 

route, mode, or destination 

choices based on conditions

• System

Speed limit 

reduction

Consider establishing new speed zone 

with reduced speed limit (permanent) 

through recurring congestion areas

• Reduce vehicular speeds • SR 14 Segments 

A, B, D, E & F

Portable 

changeable 

message signs 

(PCMS) during 

seasonal 

congestion

Provide temporary, portable message 

signs during peak seasons with 

informational messages

• Increase awareness of upcoming 

traffi c congestion or pedestrian 

activity

• Recreation Areas

• SR 14 Segments 

(all, as needed)

Seasonal 

(portable) speed 

radar sign

Provide temporary, portable speed 

radar signs during peak seasonal 

congestion

• Reduce vehicular speeds • Recreation Areas

• Dog Mountain

Trail apps Create trip sharing smartphone 

application to share user information 

(e.g., TREAD Map App)

• Promote less congested times 

and locations to spread demand

• System
56 SR 14 and Dog Mountain Congestion and Safety Study

Table 4: Congestion and Safety Toolkit (cont’d)

Category Tool/

Strategy Description Issue(s) Addressed ApplicableFocus Areas

Signing 

and 

Striping

Static “Congestion 

Ahead” or slow 

vehicle warning 

signs

Provide advance warning signs 

to indicate upcoming congestion 

or areas of slow vehicles -- 

Evaluate impact of cumulative 

eff ects to scenic resources

• Reduce rear end collisions

• Improve driver expectancy

• Recreation Areas 

(congestion ahead)

• SR 14 Segments A, 

B & C (slow vehicle 

warning)

Rumble strips Install rumble strips between 

travel lane and road shoulder 

or roadway pull-out

• Reduce fi xed object/road departure 

collisions

• Delineate traffi c from high-use 

pedestrian activity in shoulder

• Recreation Areas

• SR 14 Segments A, B, 

E, F & H

• Dog Mountain

No Parking signs Install No Parking signs to 

indicate illegal parking zones

• Prohibit parking in certain locations

• Limit pedestrians walking alongside 

vehicular traffi c

• Recreation Areas

• SR 14 Segments A, B, 

F & G

• Dog Mountain

“Local Access Only” 

sign

Install signage to discourage 

through traffi c

• Discourage through traffi c • Recreation Areas

No passing zone Stripe roadway as no passing 

zone

• Reduce potential confl ict points or 

high speeds in recreation areas

• SR 14 Segments C, D, 

E & F

Advance warning 

sign with street 

name

Provide advance warning signs 

to indicate name of upcoming 

access road/destination

• Reduce rear end collisions

• Improve driver expectancy

• Recreation Areas

• SR 14 Segments

Left Turning Ahead 

sign

Provide advance warning signs 

to indicate upcoming left turn

• Reduce rear end collisions

• Improve driver expectancy

• Recreation Areas

• SR 14 Segments C & E

Parking delineation 

on gravel

Delineate parking spaces with 

removable treatment

• Encourage effi cient use of available 

parking area

• Recreation Areas

Pedestrian activity 

signage

Provide enhanced signage to 

indicate areas of increased 

pedestrian activity

• Increase awareness of pedestrian 

activity

• Improve driver expectancy

• Recreation Areas

• SR 14 Segments A, B, 

D, E & F

Pedestrian 

wayfi nding 

signage

Provide wayfi nding signage for 

pedestrians at recreation sites

• Encourage pedestrian channelization

• Traffi c calming

• Recreation Areas

Traffi c

Calming

Provide buff ered 

pedestrian path

Install buff er between vehicles 

and pedestrian travelway

• Encourage pedestrian channelization

• Reduce confl ict points between 

vehicles and pedestrians

• Recreation Areas

Speed cushion Install a speed cushion • Reduce vehicular speeds • Recreation Areas

Speed table Install a speed table • Reduce vehicular speeds

• Can be designed to serve as a 

pedestrian crossing

• Recreation Areas

Pedestrian crossing Provide a designated 

pedestrian crossing

• Pedestrian channelization

• Reduce vehicular speeds

• Increase pedestrian visibility

• Recreation Areas

S a f e t y a n d C o n g e s t i o n T o o l k i t
S a f e t y a n d C o n g e s t i o n T o o l k i t SR 14 and Dog Mountain Congestion and Safety Study 57

Table 4: Congestion and Safety Toolkit (cont’d)

Category Tool/

Strategy Description Issue(s) Addressed ApplicableFocus Areas

Transit 

and 

Shuttle

Services

Transit 

amenities

Provide amenities at transit stops 

(shelters, benches, bus stop signs, 

discounted gear rental)

• Encourage pedestrian channelization

• Reduce confl ict points between 

vehicles and pedestrians

• Recreation Areas

• System

• Dog Mountain

Transit pulloutsIdentify locations for new or enhanced 

transit pull-outs along SR 14

• Reduce vehicular speeds • Recreation Areas

• System

Seasonal 

transit shuttle

Establish seasonal transit routes to 

service peak demand:

• East of White Salmon (March–April)

• Dog Mountain (April–June)

• West of White Salmon (June–August)

• Reduce vehicular speeds

• Can be designed to serve as a 

pedestrian crossing

• Recreation Areas

• System

Establish 

CRGNSA “loop” 

shuttles

Establish a shuttle loop to connect 

Washington and Oregon:

The Dalles/Hood River

Hood River/Bridge of the Gods

• Encourage pedestrian channelization

• Reduce vehicular speeds

• Increase driver awareness of 

pedestrians

• System

Connect with 

Oregon transit 

systems

Coordinate with Columbia Gorge 

Express to extend service to Washington

• Encourage transit use

• Reduce vehicular demand

• System

Park and ride 

lots

Provide park and ride lots to reduce 

single vehicle parking congestion at highuse sites

• Encourage transit use

• Reduce vehicular demand

• Can be located within urban areas that 

will benefi t from increased tourism

• System

Public/private 

partnership

Work with local recreation businesses 

to create a weekend shuttle to serve 

recreation-specifi c sites

• Encourage transit use

• Reduce vehicular demand

• Can be located within urban areas that 

will benefi t from increased tourism

• System

• Recreation Areas

Service 

enhancements

Work with transit agencies to establish 

a frequent, convenient, and reliable 

transit schedule to Washington’s busiest 

sites

• Encourage transit use

• Reduce vehicular demand

• System

• Recreation Areas

Transit 

incentives

Provide a reason to use transit instead 

of driving self: Pass reduction rates for 

locals, low-income persons, students

• Encourage transit use

• Reduce vehicular demand

• System

• Recreation Areas

Port of 

Portland/PDX 

seasonal Gorge 

connection

Appeal to ecotourism by connecting 

Gorge transit to Portland International 

Airport during spring and/or summer

• Encourage transit use

• Reduce vehicular demand

• System

Weekend 

shuttle

Establish weekend shuttle to high-use 

recreation sites

• Encourage transit use

• Reduce vehicular demand

• System

• Recreation Areas
58 SR 14 and Dog Mountain Congestion and Safety Study S a f e t y a n d C o n g e s t i o n T o o l k i t

System Level

A combination of systems level information and 

parking management strategies are applicable 

throughout the SR 14 study area, and can be 

implemented to better inform visitors and provide 

transit options. The overall objectives of these 

systems level strategies are to disperse arrival and 

departure times more evenly and provide transit 

options to ultimately lower the volume of vehicle 

parking at popular destinations during peak seasons. 

Successful deployment of new or expanded systems 

level tools and strategies will involve bi-state and 

multi-agency coordination and investments.

Systems Level Strategies

Visitor Use 

Management and 

Law Enforcement

• Establish permit fees coupled with expanded reservation system

• Establish parking management association

• Increased illegal parking enforcement

Public Information 

Campaigns • Provide one-stop visitor centers with traveler information for parking availability and transit shuttle service

Technology 

Systems

• Install real-time parking information

• Expand use of variable message signs in urban areas to inform user route, mode or destination choice

• Create trip sharing smartphone applications to promote less congested times to more evenly spread user 

demand

Transit

• Provide new transit pull-outs along SR 14 and stop amenities

• Connect with Oregon transit systems

• Provide park and ride lots

• Public/private partnership to create weekend shuttle service

• Establish more frequent weekday service

SR 14 Segments

Figure 13 illustrates the eight major segments 

(Segments A through H) defined for the SR 14 study 

area. The SR 14 highway segments were determined 

based primarily on their geographic, landscape and 

alignment characteristics.

In recognition of the traffic crash history (type and 

severity) and access points along the full SR14 

Figure 13: SR 14 Segments

corridor, more specific strategies to improve motorist 

safety are selected from the Toolkit by category and 

identified for each highway segment.

Table 5 summarizes the Toolkit strategies by SR 14 

segment. Findings of the SR 14 segment application 

of the Toolkit strategies are largely consistent and 

reflective of the recommendations contained in the 

SR 14 Corridor Management Plan (1991).
S a f e t y a n d C o n g e s t i o n T o o l k i t SR 14 and Dog Mountain Congestion and Safety Study 59

Recreation Sites

As previously discussed in this report, several 

recreation sites experience recurring instances of 

parking overflow that result in visitors parking on

the shoulder of the adjacent county road or along 

SR 14. Tools and strategies from the Safety and 

Congestion Toolkit are considered and applied to 

each of these recreation sites as summarized below.

For each site the lead agency (with jurisdiction) 

Table 5: Toolkit Strategies

Category Toolkit Strategy

SR 14 Segments

A B C D E F G H

Access Management Access Consolidation X X X

Infrastructure

Improvements

Shoulder Widening X X X X X X X X

Turn Lanes X X X

Landslide and Rockfall X X X X X X X X

Traffi c Control Changes X X X X X

Technology

Systems

Speed Limit Reduction X X X X X

Portable Message Signs X X X X X X X X

Signing and

Striping

Slow Vehicle Warnings X X X

Rumble Strips X X X X X

No Parking Signs X X X X

No Passing Zones X X X X

Left Turn Ahead Signs X X

Pedestrian Activity and Wayfi nding Signs X X X X X

is identified for conducting further site study 

and project development. Lead agencies should 

partner with local organizations like Friends of the 

Columbia River Gorge to help guide develop plans of

accessible, barrier-free options, and that accessible 

accommodations are accounted for in the design of 

parking lots and visitor access facilities.
60 SR 14 and Dog Mountain Congestion and Safety Study

Cape Horn Viewpoint

Issue Strategy Implementation Considerations

Horizontal curves/

sight distance with 

congestion

Congested area/slow vehicles 

warning signs

Warning advisory sign with advisory speed more eff ective than variable 

speed limits.

Variable speed limit/speed limit 

reduction

Variable speed limit not desirable in rural areas per CRGNSA Scenic 

Guidelines.

Rumble strips Installation of rumble strips needs to consider potential impacts to 

available space for bicycle traffi c in shoulder.

Congestion from 

westbound vehicles 

turning into shoulder

Prohibit westbound left turn 

(signage)

Consider providing a designated left turn downstream for vehicles wanting 

to make a U-turn.

One-way parking signage Signs would need to be designed and placed consistent with CRGNSA 

Scenic Guidelines.

Road/shoulder width Replace with wider structures 

(1997 plan)

When this project becomes a WSDOT priority, the viewpoint will need to be 

considered as part of the design refi nement.

Lead Agency: WSDOT

S a f e t y a n d C o n g e s t i o n T o o l k i t
S a f e t y a n d C o n g e s t i o n T o o l k i t SR 14 and Dog Mountain Congestion and Safety Study 61

Cape Horn Trailhead

Issue Strategy Implementation Considerations

Parking overfl ow Real-time parking availability • Cameras potentially provide visitors with access to images via a website.

• Cameras would require infrastructure for power (battery, solar or 

hardwire/fi ber) and communications (wireless, cellular, hardwire/fi ber, 

local communication tower)

• Camera installation and location must be sensitive to the natural 

surroundings and scenic standards in the CRGNSA Management Plan.

• Sensors would require similar infrastructure as cameras and likely an 

additional maintenance cost.

Implement permit system for 

park and ride users/fee for trail

• Recommend coordination between USFS and Skamania County as the 

USFS does not own the parking lot.

• Regular enforcement would be required to ensure compliance.

• County could charge fee but the USFS NW Forest Pass is likely not 

applicable.

• New permit system would require NEPA planning and entail ongoing 

system management and support.

• Policy changes may be needed to collect revenue and establish permit 

system.

Shuttle system originating in 

Clark County

• Will likely require coordination with C-Tran.

• Would entail ongoing system management and support.

Accessibility Opportunities to expand 

accessibility and/or provide 

parking:

Current Cape Horn Trailhead parking is shared with Salmon Falls Park 

and Ride under Skamania County jurisdiction with a RIC 2 (maximum 25 

parking spaces). Cannot expand parking in current location. Truck traffi c 

anticipated to increase along Salmon Falls Road.

A: Canyon Creek/Mt Pleasant 

Parcel – parking

• RIC Class varies between 2 and 3. 

• Consider potential for parking at this site to accommodate additional 

trail/recreation users.

• Traffi c study should be conducted to quantify potential impacts to local 

road system.

• Depending on the size of parking expansion, there is the potential of 

inducing area traffi c congestion that may require further mitigation.

B: Collins Parcel – accessibility • Land straddles boundary of CRGNSA. Recreational Intensity 2 within CRGNSA 

(maximum 25 parking spaces), outside CRGNSA land is under Skamania 

County zoning regulations.

• Design should consider features/treatments for accessibility and mobility 

needs.

• Consider potential for improvements at this site to address barriers for trail/

recreation users with accessibility and mobility needs.

• Traffi c study should be conducted to quantify potential impacts to local road 

system.

• Requires coordination with adjacent neighbors who will have concerns of 

increased traffi c. 

• Parcel is currently owned by Friends of the Columbia Gorge. Current vision of 

the site may confl ict with the need for parking to access the Cape Horn Trail.
62 SR 14 and Dog Mountain Congestion and Safety Study

Issue Strategy Implementation Considerations

Parked vehicles 

blocking traffi c and 

driveways

No parking zones on Salmon 

Falls Rd and Canyon Creek Rd

• Regular enforcement would be required to ensure compliance. 

Enforcement resources are at capacity, will require additional resources.

• Consider zone placement that discourages displacement of the illegal 

parking to another location.

Local access only signage for 

Canyon Creek Rd (pilot study)

• Consider a pilot study using temporary barriers.

• Maintain adequate right-of-way for local delivery truck traffi c.

• Will need to comply with Skamania County road standards.

• Encourage advanced outreach to local property owners along Canyon Creek 

Rd.

Lead Agency: Skamania County (parking lot) and USFS (trail)

Cape Horn Trailhead (cont'd)

S a f e t y a n d C o n g e s t i o n T o o l k i t
S a f e t y a n d C o n g e s t i o n T o o l k i t SR 14 and Dog Mountain Congestion and Safety Study 63

Beacon Rock Trailhead

Figure 14: Beacon Rock State Park Preferred Concept Plan

Washington State Parks completed the Beacon Rock Entrance Road Realignment planning process in 2019 

to identify a preferred concept to renovate the main park entrance at Beacon Rock State Park!. This study 

supports the strategies identified in the Preferred Concept that was the result of the 2019 planning process, 

as summarized below:

3 https://parks.state.wa.us/1142/Beacon-Rock-Entrance-Road-Realignment

Source: Washington State Parks and Recreation Commission, 2022

1. Roundabout at Kueffler Road/SR 14

2. Four-way intersection at Little Road/SR 14

3. Improved Hamilton Mountain Road/SR 14 intersection

4. Two-way Hamilton Mountain Road with 5-foot path

5. New parking lot west of existing parking lot

6. New visitor center and restroom at new parking lot

7. Grade-separated pedestrian undercrossing

8. Trail to new parking lot

9. New information kiosk

10. Bioretention stormwater areas

11. Auxiliary parking north of Kueffler Road/SR 14

12. Short-term and accessible parking at the eastern end (retrofit 

existing parking)

13. Replace culverts for fish passage north of Kueffler Road/SR 14

14. Retaining wall

15. Separated sidewalk from SR 14 on the north side of SR 14

16. Park entry sign on SR 14

The first phase of improving safety along SR 14 at the Beacon Rock Trailhead involves submitting a predesign 

report to the Office of Financial Management to determine whether the project proposal meets key criteria 

to be included in a capital budget request to the Washington State Legislature. If the proposal is included 

in the capital budget request, the next steps are to apply for legislative funding for design and permitting, 

followed by funding for construction. These steps may be accomplished in phases. The entire funding 

process, from concept to construction, would occur over several state budget cycles.
64 SR 14 and Dog Mountain Congestion and Safety Study

Drano Lake Boat Ramp

Issue Strategy Implementation Considerations

Parking 

overfl ow

Real-time parking 

availability

• Cameras potentially provide visitors with access to images via a website.

• Cameras would require infrastructure for power (battery, solar or hardwire/fi ber) and 

communications (wireless, cellular, hardwire/fi ber, local communication tower).

• Camera installation and location must be sensitive to the natural surroundings and 

scenic standards in the CRGNSA Management Plan.

• Sensors would require similar infrastructure as cameras and likely an additional 

maintenance cost.

Implement reservation 

system during peak 

fi shing season(s)

• Coordinate reservation system with existing Skamania County Boat Launch Permit 

system (Ordinance No. 2018-02).

• An online reservation system would need to be set up.

Inability 

to expand 

in current 

location

Provide limited spaces 

for single vehicle parking 

(with fee) to discourage 

parking in SR 14 shoulder

• During peak season, parking overfl ow on SR 14 could still exist.

• Single vehicle parking could create exclusivity for a portion of parking stalls and could 

create frustration if reserved stalls are empty and no other boat trailer stalls can be 

found. 

Vehicles parked 

on SR 14

Seasonal congestion 

ahead signs (PCMS)

• Display temporary information about upcoming change in traffi c conditions/increased 

congestion.

• Signs would need to be designed and placed consistent with CRGNSA Scenic Guidelines.

• PCMS placement will need to be coordinated with the appropriate road authority.

Rumble strips Installation of rumble strips needs to consider potential impacts to available space for 

bicycle traffi c in shoulder.

No passing zone through 

parking area

Should coordinate with Washington State Patrol.

Extend no parking zone • Regular enforcement would be required to ensure compliance.

• Consider zone placement that discourages displacement of the illegal parking to 

another, potentially more dangerous, location.

Increased enforcement 

during peak season(s)

• Traffi c restriction policies and enforcement penalties should be clearly explained to 

visitors; new traffi c restrictions can be implemented in a pilot program to test whether 

they have the desired impacts before making them permanent.

• Often requires increased staff resources on-site.

Lead Agency: Skamania County (parking lot) and WSDOT (SR 14 vehicle access)

S a f e t y a n d C o n g e s t i o n T o o l k i t
S a f e t y a n d C o n g e s t i o n T o o l k i t SR 14 and Dog Mountain Congestion and Safety Study 65

Swell City to Spring Creek State Park

Issue Strategy Implementation Considerations

Uncontrolled access 

(private property)

Provide one-way 

circulation with curb/

barrier

• Coordination at Swell City between private landowner and WSDOT.

• Consider design mimicking Doug’s Beach access management.

• Signs would need to be designed and placed consistent with CRGNSA Scenic 

Guidelines.

• Need to consider potential impacts of curb/barrier to available space for bicycle 

traffi c in shoulder.

Provide more formalized 

parking delineation

Would need to be designed and placed consistent with CRGNSA Scenic Guidelines.

Vehicles parked on 

SR 14

Congestion ahead signs • Signage could be permanent or temporary.

• Display temporary information about upcoming change in traffi c conditions/

increased congestion.

• Signs would need to be designed and placed consistent with CRGNSA Scenic 

Guidelines.

• PCMS placement will need to be coordinated with the appropriate road authority.

Rumble strips Installation of rumble strips needs to consider potential impacts to available space for 

bicycle traffi c in shoulder.

Provide buff ered 

pedestrian path between 

gravel lots

• Path would likely be on private land.

• Consider pairing with pedestrian wayfi nding signage (would need to be designed 

and placed consistent with CRGNSA Scenic Guidelines).

Pedestrians 

crossing SR 14 near

Spring Creek 

Hatchery Rd

Install gate or barrier to 

prohibit parking north of 

SR 14 (private property)

• Gate/barrier would be on private land.

• Consider how limiting this parking could displace the illegal parking to another, 

potentially more dangerous, location.

• Could keep gates in raised position during low demand periods, when restrictions 

may be lifted (e.g., nights, off -season).

Lead Agency: WSDOT (SR 14 shoulder), and Washington State Parks (Spring Creek Park)
66 SR 14 and Dog Mountain Congestion and Safety Study

Coyote Wall

Issue Strategy Implementation Considerations

Parking 

overfl ow

Real-time parking 

availability

• Cameras potentially provide visitors with access to images via a website.

• Cameras would require infrastructure for power (battery, solar or hardwire/fi ber) and 

communications (wireless, cellular, hardwire/fi ber, local communication tower).

• Camera installation and location must be sensitive to the natural surroundings and scenic 

standards in the CRGNSA Management Plan.

• Sensors would require similar infrastructure as cameras and likely an additional 

maintenance cost.

Implement usage 

fee (coupled with 

increased transit 

shuttle service)

• USFS requires certain amenities to be in place before instituting day-use fee, which are in 

place at this location, however new fee proposals typically require a one to two year public 

engagement and approval process.

• New policies and enforcement penalties should be clearly explained to visitors.

• Often requires increased staff resources on-site for enforcement and ongoing maintenance, 

and fee collection. Consider automated machine for collections.

Shuttle system 

originating in White 

Salmon/Hood River

• Explore a public-private partnership for providing shuttle service for recreationalists. 

• A concern is that the service could result in the additional use of trails, possibly negatively 

impacting the recreational experience or causing more off -trail impacts than currently 

exist.

Vehicles parked 

on Courtney Rd

No parking zones on 

Courtney Rd

• Regular enforcement would be required to ensure compliance. Enforcement resources are 

at capacity, will require additional resources.

• Consider zone placement that discourages displacement of the illegal parking to another, 

potentially more dangerous, location.

No Parking and tow 

symbol signs near 

SR 14

• Regular enforcement would be required to ensure compliance. Enforcement resources are at 

capacity, will require additional resources.

• Consider zone placement that discourages displacement of the illegal parking to another, 

potentially more dangerous, location.

SR 14/Courtney 

Rd intersection 

safety

Advance intersection 

warning sign with 

street name

• Compliance with WSDOT standards.

Eastbound leftturning vehicles 

ahead sign

• Compliance with WSDOT standards.

Lead Agency: Skamania County (parking lot) and WSDOT (SR 14 shoulder and vehicle access)

S a f e t y a n d C o n g e s t i o n T o o l k i t
S a f e t y a n d C o n g e s t i o n T o o l k i t SR 14 and Dog Mountain Congestion and Safety Study 67

Catherine Creek

Issue Strategy Implementation Considerations

Parking overfl ow Real-time parking 

availability

• Camera installation and location must be sensitive to and complementary to 

the natural surroundings and scenic standards, in compliance with the CRGNSA 

Management Plan.

• Cameras potentially provide visitors with access to images via a website.

• Cameras would require infrastructure for power (battery, solar or hardwire/fi ber) 

and communications (wireless, cellular, hardwire/fi ber, local communication tower)

• Sensors would require similar infrastructure as cameras and likely an additional 

maintenance cost.

Implement usage 

fee (coupled with 

increased transit 

shuttle service)

• Could require an intergovernmental agreement between Klickitat County and USFS 

due to land ownership.

• Could explore mechanism to ensure that the fees collected go to improving a local 

site. 

• USFS requires certain amenities to be in place before instituting day-use fee.

• New policies and enforcement penalties should be clearly explained to visitors.

• Often requires increased staff resources on-site for enforcement and ongoing 

maintenance.

Channelize and 

provide angle parking

• Coordination between USFS and Klickitat County would be needed to ensure 

compliance with roadway standards and CRGNSA Scenic Guidelines.

• Consider design mimicking Doug’s Beach access management.

• Need to consider potential impacts of curb/barrier to available space for emergency 

vehicle access.

• Accessible parking spaces should be designed consistent with ADA and Architectural 

Barriers Act (ABA) requirements.

Transit shuttle 

(seasonal – 

originating in Lyle, 

White Salmon or 

Hood River)

• Will likely require coordination with Gorge TransLink alliance.

• Would entail ongoing system management and support.

• Explore a public-private partnership for providing shuttle service for recreationalists. 
68 SR 14 and Dog Mountain Congestion and Safety Study

Issue Strategy Implementation Considerations

Old Hwy 8 Safety Traffi c calming 

measures (speed 

table/hump, 

speed radar signs, 

pavement demarking 

delineation)

• Coordination with Klickitat County to ensure compliance with roadway standards 

and CRGNSA Scenic Guidelines.

• Design considerations for emergency vehicle and snowplow access.

Provide designated 

crossing of Old Hwy 

8 to connect trail 

systems

• Coordination between USFS and Klickitat County would be needed to ensure 

compliance with roadway standards and CRGNSA Scenic Guidelines.

Provide pedestrian 

wayfi nding signage

• Coordination between USFS and Klickitat County would be needed to ensure 

compliance with roadway standards and CRGNSA Scenic Guidelines.

Consider accessible 

trail 

connection to 

universal access trails

• Coordination between USFS, Friends of the Columbia River Gorge, and Klickitat 

County would be needed to ensure compliance with roadway standards and 

CRGNSA Scenic Guidelines.

• If Friends of the Columbia Gorge’s Catherine Creek parcel were to be used for 

parking, it would not be designed as a traditional parking lot and it may include 

accessible parking and potentially a transit option.

Lead Agency: Klickitat County (access and parking) and USFS (trailhead)

Catherine Creek (cont'd)

S a f e t y a n d C o n g e s t i o n T o o l k i t
SR 14 and Dog Mountain Congestion and Safety Study 69

Informal Recreation Sites - Special Considerations

Similar to other recreation sites in the study, the informal but popular Klickitat River Delta access in Lyle 

(referred to by some as the ‘Klickitat Spit’) also experiences recurring congestion and safety concerns. 

There are a number of technical issues associated with access and vehicle parking at the site.

Continued conversations between USFS, WSDOT and BNSF Railway (BNSF) acknowledge three key issues 

concerning access: (1) currently, pedestrians crossing the railroad accessing the Klickitat River Delta are 

trespassing (illegally) and present unique safety and legal liability issues, (2) the only pedestrian crossing 

design that BNSF might approve would be a pedestrian undercrossing, and (3) BNSF will likely not commit 

any funding resources for the design and construction of a new pedestrian undercrossing. Potential 

railroad crossing solutions are likely expensive, and affirming roles and responsibilities for the design and 

interagency discussions have yet to identify federal and/or state and local funding support. Complicating 

the access issues in this area is the lack of parking on SR 14, which contributes to the safety concerns. 

Providing a formal access also presents its own challenges as there are potential impacts to cultural and 

fisheries resources that must be considered.

The USFS has been holding meetings with the community of Lyle to discuss potential measures to reconcile 

access and parking issues. Locating more formal site access parking is a challenge, and may require the 

extension of public sidewalks, and coordination with WSDOT to determine the most appropriate access 

from SR 14. 

The Forest Service and Yakama Nation continue to meet to understand Yakama Nation’s plans for the 

restoration of the Klickitat River Delta and current and future recreation use. It is premature to conclude 

the SR 14 Dog Mountain Congestion and Safety Study with specific findings and recommendations for this 

site until the Klickitat River Delta restoration planning is complete, and Yakama Nation and federal, state, 

local agencies and community can convene and affirm the next planning steps towards plan agreements 

and potential project development to improve site access, parking and safety.

Any future plan strategy or project design proposal with inter-agency support can be readily incorporated 

in the forthcoming Klickitat County Regional Transportation Plan Update (expected in 2023), and will be 

fully eligible on their merits for state and federal funding grants and assistance as other potential projects 

identified in the SR 14 and Dog Mountain Congestion and Safety Study (above).

In the interim, some of the system level strategies or toolkit strategies listed in Table 5 may be applicable to 

help alleviate safety concerns associated with recreation congestion along SR 14 and Old Highway 8 near 

the Klickitat River Delta: Access consolidation, shoulder widening, PCMS messaging (seasonal), temporary 

speed radar, congestion ahead warning, pedestrian activity and wayfinding signs, increased enforcement 

of illegal parking and public information campaigns to encourage safe behavior.

 Leading Agency: USFS (Yakama Nation and BNSF coordination) and WSDOT (parking and access design)

S a f e t y a n d C o n g e s t i o n T o o l k i t

Lyle / Klickitat River Delta

Ozone Climbing

At the west end of the study area, Ozone Climbing is an informal site known to rock climbers. Users of this 

site park in the shoulder area on the south side of SR 14 to access the crag (also on the south side of SR 

14). The area experiences recurring congestion and safety concerns with the limited space for vehicular 

parking and traffic entering and exiting the highway.

A more formal site designation or expanded access is not proposed at this time. However, similar to the 

Klickitat River Delta site, some of the system level strategies or toolkit strategies listed in Table 5 may 

be applicable to help alleviate safety concerns associated with recreation congestion along SR 14: PCMS 

messaging (seasonal), temporary speed radar and congestion ahead warning.

 Leading Agency: WSDOT (SR 14 right of way) and USFS (partially on USFS lands)
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Dog Mountain Trailhead 

Relocation
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SR 14 and Dog Mountain Congestion and Safety Study 73

The Dog Mountain Concept Refinement Report (Appendix B) is a separately-funded project to identify 

solutions that address known safety and congestion concerns at the existing Dog Mountain Trailhead, 

located immediately north of SR 14 (see Figure 1).

The purpose of the Concept Refinement Report is to provide the project planning partners (USFS, WSDOT, and 

FHWA) information needed to refine the project scope and support subsequent NEPA analysis, the project

purpose and need statement and a rational basis for a reasonable range of options considered and evaluated.

As shown in Figure 14, there were initially five site options identified to relocate or improve the Dog 

Mountain Trailhead and associated parking lot. The five options were distributed to the appropriate staff

from the project planning partners for preliminary feedback.

USFS Interdisciplinary Team Site Visit

Preliminary Site Concepts

As a result of the preliminary screening 

process, two of the Dog Mountain 

Trailhead relocation options (Grant 

Lake and Existing) were advanced 

for further study and refinement, as 

described in the following sections.

Although the existing trailhead parking 

lot had undergone multiple studies, not 

as much was known about the Grant 

Lake area. A site visit was conducted on 

Tuesday, July 27, 2021, with USFS natural 

resource and recreation staff to further 

evaluate potential sites to relocate the 

Dog Mountain Trailhead in the areas 

west and north of Grant Lake.

Figure 14: Dog Mountain Trailhead Relocation Initial Conceptual 

Locations

Dog Mountain Trailhead Relocation

Concept Development

Defi ning Purpose and Need 

The purpose of the Dog Mountain Trailhead 

relocation is to:

• Minimize or remove hazardous 

conditions along SR 14 as they relate 

to accessing the Dog Mountain 

Trailhead

• Discourage parking on SR 14

• Support the land management 

strategies of USFS

• Maintain the trail user experience of 

the Dog Mountain Trail

D o g M o u n t a i n T r a i l h e a d R e l o c a t i o n

Screening the Options

A screening process was undertaken by the Core 

Project Team (CPT) to identify site options that are 

unlikely to be implemented, whether the concept 

would address the project purpose and need (as 

defined to the right), or whether the agencies have

other jurisdictional or resource related concerns. 

Feedback from the project planning partners on 

the five trailhead relocation options aided the CPT

in determining which options best met the purpose 

and need and thus warranted further study and 

evaluation (Preliminary Site Concepts below), and 

those options that should be removed from further 

consideration. The results of the screening process

and feedback are also summarized in Figure 14.
74 SR 14 and Dog Mountain Congestion and Safety Study

Grant Lake Conceptual Layout Plans

Two unique conceptual layouts were developed 

to illustrate possible trailhead and parking 

configurations near Grant Lake. These layouts are 

meant to serve as preliminary plans that will inform 

future project development in the conceptual 

and final Dog Mountain parking lot and trailhead 

design.

Site 1: NW Grant Lake Dispersed

Figure 15 depicts Site 1, titled “NW Grant Lake 

Dispersed”, as its notable feature minimizes the 

distance between the northern parking lot and 

Concept Refi nement

The CPT considered the feedback from the preliminary screening and the USFS interdisciplinary team site 

visit to further vet relocating the Dog Mountain Trailhead west near Grant Lake or improving the existing 

parking lot. The CPT determined that even with improvements to the existing parking lot, it would not 

meet the purpose and need. As a result, the project team continued to refine the parking lot and trailhead 

options near Grant Lake while suggesting interim improvements for the existing site. The existing site 

improvements could be implemented while the trailhead relocation process continues to move forward.

To meet the needs of year-round recreational users, the CPT determined that a new Dog Mountain 

Trailhead parking lot should account for the following features:

• Parking capacity for 50 to 75 vehicles to maintain desired user experiences at Dog Mountain and 

avoid site overcrowding

• Capability of accommodating transit shuttle operations and circulation

• Amenities: Transit shelter, interpretive sign(s), and vault toilet(s)

Figure 15: Site 1 - NW Grant Lake Dispersed

shuttle bus area, and the existing Dog Mountain 

Trail system. 

A preliminary, rough order-of-magnitude cost 

estimate for the NW Grant Lake Dispersed site 

ranges from $2.3 million to $3 million, depending 

on design features. These costs may increase to 

approximately $3.2 million to $4.1 million if project 

and construction engineering design support is 

required.

D o g M o u n t a i n T r a i l h e a d R e l o c a t i o n
D o g M o u n t a i n T r a i l h e a d R e l o c a t i o n SR 14 and Dog Mountain Congestion and Safety Study 75

Figure 16: Site 2 - NW Grant Lake Compact

Site 2: NW Grant Lake Compact

Figure 16 depicts Site 2, titled “NW Grant Lake 

Compact”, as its distinguishing feature minimizes 

the distance between the north and south parking 

lots, reduction in the overall footprint and limits 

the extents of new roadway construction and 

impervious surface.

Assessing Natural Resource Impacts

If concepts are moved forward into project 

development, an analysis for compliance with 

NEPA and other applicable federal and state 

regulations will be completed as part of the project

development process, including the CRGNSA 

development review and approval process. The 

NW Grant Lake conceptual layout plan options 

were developed based on information gathered 

from existing studies and two site visits. Combined, 

this information provides some preliminary 

considerations related to potential impacts to 

natural resources, as described below.

The preliminary, rough order-of-magnitude cost 

estimate for Site 2 ranges from $1.9 million to $2.5 

million, depending on design features. If project 

and construction engineering design support is 

required, the rough cost estimate may increase to 

approximately $2.7 million to $3.6 million.

Biological Considerations

USFS and the Washington Department of Fish and 

Wildlife have a Memorandum of Understanding 

(MOU) for the NW Grant Lake area regarding 

sensitive species. Any parking lot/trailhead designs 

will need to account for the MOU findings, and will 

Visual Considerations

Scenic quality is a fundamental element of recreation 

experiences within the CRGNSA. The CRGNSA 

Management Plan defines Key Viewing Areas (KVAs) 

as “those portions of important public roads, parks, 

or other vantage points within the Scenic Area from 

which the public views Scenic Area landscapes.” Both 

Dog Mountain and SR 14 are identified KVAs within 

the CRGNSA.

New roadway grading and parking lot construction 

activities will be visible from SR 14. Special design 

treatments will likely be required to blend the new 

road and parking lot with the natural environment, 

even if the future parking lot itself is not visible. 

A comprehensive, “leaf off”4 site evaluation is 

needed to more accurately determine the type and 

extent of needed special design treatments.

4 “This term is often used when considering image acquisition through remote sensing and refers to the time of the year during which an image is taken. . . Leaf-off means that there 

is no foliage or a reduced amount of foliage on the tree or shrub species. Sometimes it is benefi cial to have leaf-off imagery so that you can see ground features more distinctly. This is 

helpful for mapping features such as buildings and roads, which may be obscured by tree foliage during the growing season (https://mapasyst.extension.org/what-is-the-diff erencebetween-leaf-on-and-leaf-off -imagery).”

require coordination with all relevant management 

programs.
76 SR 14 and Dog Mountain Congestion and Safety Study

Access and Safety Improvement Opportunities

Existing Dog Mountain Trailhead Interim Improvements 

The study recognizes the Dog Mountain Trailhead 

relocation project is still in the early stages of 

analysis and the existing trailhead and parking lot 

will remain open to the public for the foreseeable 

future. Projected trail use is expected to continue 

its upward trend and managing congestion at the 

current Dog Mountain Trailhead and parking lot 

under the existing configuration and trail system 

will remain a challenge.

The existing Dog Mountain Trailhead parking 

lot, while “grandfathered” in under the CRGNSA 

Management Plan, does not meet the plan’s current 

Table 6: Interim Strategies for Consideration at Existing Dog Mountain Trailhead

Strategy Description Considerations

Real-time 

parking 

availability

• Use closed-circuit cameras to monitor 

visitor demand management information.

• The cameras could monitor traffi c 

congestion and parking lot capacity. 

• WSDOT can also use cameras to view 

weather and road conditions that aff ect 

travel speeds.

• Use sensors to monitor parking utilization.

• Cameras potentially provide visitors with access to images via a website.

• Cameras would require infrastructure for power (battery, solar or 

hardwire/fi ber) and communications (wireless, cellular, hardwire/fi ber, 

local communication tower).

• Camera installation and location must be sensitive to the natural 

surroundings and scenic standards of the CRGNSA.

• Sensors would require similar infrastructure as cameras and likely 

additional maintenance costs. 

Expand 

peak season 

reservation 

system

Expand peak season reservation system 

throughout spring and summer and/or 

include weekday permit requirements.

• Regular enforcement would be required to ensure compliance. 

Enforcement programs are at capacity, will require additional resources.

• Requiring permits would entail ongoing system management and 

support.

Extend No 

Parking sign 

to east

Extend no parking/tow away zone signage 

into shoulder area of SR 14 ~300 feet east 

of the Dog Mountain Trailhead.

• Risk of restricting parking is that visitors may fi nd a less safe way to 

park.

Guardrail to 

block access 

to shoulder

Install guardrail along north shoulder of SR 

14 both east and west of the Dog Mountain 

Trailhead to prohibit vehicles from parking 

in shoulder. 

• Design exception may be necessary.

• Guardrail could be considered as a buff ered pedestrian trail to access 

trailhead. 

• Design would need to be consistent with CRGNSA Scenic Guidelines.

Congested 

ahead/slow 

vehicles 

warning 

signs

Use portable changeable message signs 

to advise visitors of congestion, delays, 

or parking conditions during seasonal 

congestion.

• Dynamic and variable message signs would allow visitors to make more 

informed decisions.

• Signs can display only a limited amount of information.

• Signs would need to be designed and placed to be consistent with 

CRGNSA Scenic Guidelines.

Shuttle 

expansion

• Provide additional or larger shuttle vehicles.

• Reduce the time between bus arrivals 

(headways).

• Add more routes or stops.

• Could decrease congestion if drivers choose to switch travel modes.

• Need to identify a sustainable, long-term funding source.

• Need to identify additional funding for increased capital and operating 

costs.

• Transit vehicle size may be limited by existing parking lot geometry.

scenic quality standards or recreation intensity 

class standards. Significant physical changes to the 

parking lot would need to be designed to meet 

CRGNSA guidelines.

The next phase in project development will require 

further discussions with the USFS and the other 

project partners to determine the appropriate 

mitigations for the existing trailhead parking lot, 

regardless of whether the parking lot is relocated.

Interim strategies for consideration at the existing

Dog Mountain Trailhead are summarized below in 

Table 6.

D o g M o u n t a i n T r a i l h e a d R e l o c a t i o n
SR 14 and Dog Mountain Congestion and Safety Study 77

Table 7: Long-Term Mitigation Considerations at Existing Dog Mountain Trailhead

Strategy Description Considerations

Restore parking lot to 

natural conditions

Abandon existing parking lot, 

trailhead and restore to natural 

conditions.

• Would require relocated parking lot to be operational.

• Could be a form of visual mitigation for the relocated parking lot.

• Design would need to deter visitors from parking on SR 14 and 

attempting to access the existing trail from the abandoned 

trailhead location.

• Coordination with BNSF (existing BNSF easement).

Repurpose existing 

parking lot

• Repurpose existing parking lot to 

transit only.

• Access to parking lot would need to be managed/controlled, 

potentially by an automatic gate and/or pay station.

• No-car/pay-to-park access options are only successful in reducing 

congestion when visitors know about and use these systems; 

extensive marketing of alternative mode options recommended. 

• Coordination with BNSF (existing BNSF easement).

Single access point • Create consolidated access point 

to existing parking lot through 

aesthetically appropriate barrier.

• Access point should be located at 

western end to achieve adequate 

sight distance. 

• Provides overfl ow parking option for relocated trailhead.

• Could consider wall that mimics historical rock wall in CRGNSA, 

earth berm, or aesthetic barrier.

• Would need to be designed and placed consistent with CRGNSA 

Scenic Guidelines. 

• Coordination with BNSF (existing BNSF easement).

D o g M o u n t a i n T r a i l h e a d R e l o c a t i o n

Existing Dog Mountain Trailhead Long-Term Mitigation 

Considerations

As previously mentioned, keeping the primary 

access to the Dog Mountain trail system at its 

current location does not meet the purpose and 

need of this study. The proximity of the existing 

trailhead and parking lot to SR 14 creates a safety

concern for users of the trail system and the state 

highway. This safety concern will continue to exist 

without changes to the existing site. 

A prior effort to improve the existing parking lot 

was shelved in 2008 due to complexities with 

land ownership and preliminary results from 

environmental studies. Those complexities still 

exist today and, in combination with the RIC 

standards, create uncertainty that an upgraded 

parking lot with adequate capacity is feasible in its 

current location.

The project team anticipates the fate of the 

existing Dog Mountain Trailhead parking lot will 

be reviewed during the next phase of the Dog 

Mountain Trailhead relocation project. Some 

preliminary ideas were developed as part of this 

study and are summarized in Table 7. 
78 SR 14 and Dog Mountain Congestion and Safety Study

Lead Agency: The USFS will lead the next steps in Conceptual Level Planning and Site Investigations in further development of the project.

Step 1: Establish Design Criteria

Step 2: Conduct Technical Analysis and Conceptual 

Design

Step 3: Land Management Agency and 

Design Team Work Session to refi ne Dog 

Mountain Trailhead Parking Concept 

Location

Determine proposed circulation patterns, SR14 

access travel estimates and turn lane warrants Delineation of aff ected wetlands

Establish proposed project footprint

Type, size, and location of project structures

Assessment of signifi cant trees within the 

project footprint Typical; section and horizontal and vertical 

alignment of new access road, parking lot, and 

Assessment of geotechnical conditions within highway intersection

the project footprint

Estimate the associated costs of the project

Investigate the site’s environmental conditions 

and identify permitting needs

Figure 17: Project Development

D o g M o u n t a i n T r a i l h e a d R e l o c a t i o n

Prior to initiating the NEPA analysis phase, the next step in developing the Dog Mountain Trailhead 

relocation project will be to develop Conceptual Level Plans (30 percent design) to clearly identify the 

footprint of the project and identify the boundaries of the environmental studies that follow. Figure 17

illustrates the next steps in project development through a series of studies and interagency coordination 

in support of the Conceptual Level Plan.

Although not specifically called out in the figure, stakeholder engagement will be a critical component 

of the project development process and should be initiated in parallel with step 1. Not only are there 

multiple stakeholders in the CRGNSA, but the existing Dog Mountain Trailhead parking lot is partially on 

a BNSF easement and any plans for improvements or mitigation at this site will require cooperation with 

the railroad.

Next Steps in Project Development

Traffi c

Study

Topographic 

Study

Tree

Survey

Geotechnical

Report

Environmental 

Site Investigation

Wetland

Delineation

Location

Report

Access Road 

Report

Construction 

Cost Estimates
Implementation
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SR 14 and Dog Mountain Congestion and Safety Study 81

Flexible Response

Cooperation

Funding Multimodal Access Projects

To address the complex recreation and transportation needs within the CRGNSA, the study area requires a

framework of flexible and adaptive management to address issues. There are no one-size-fits-all or single

strategies that can achieve the goals of this study. Often strategies are interconnected, and implementing 

multiple approaches increases the likelihood of success.

For example, transit ridership may be higher for those programs that are designed as part of a recreation 

experience and have supporting marketing campaigns and other incentives to encourage use. Infrastructure 

enhancements make transit operations more functional, improving reliability and making transit a more 

attractive alternative for potential riders. The use of adaptive management gives agencies the ability to 

The project partners must continue to collaborate to create attractive grant funding applications, leverage 

resources, and create an operating plan that works both along the SR 14 corridor and throughout the 

CRGNSA. Prioritizing projects and implementing strategies outlined in this study should be a collaborative 

effort with the relevant stakeholders that considers the overall vision to address congestion and safety 

concerns while protecting scenic, natural, cultural, and recreational resources. Consideration should also 

be given to how well the tools meet the study goals previously described in the Introduction Chapter and 

must align with the goals of the CRGNSA. 

Managing change requires partnering agencies to continue engaging the community and working 

together to implement projects and strategies, to resolve issues as they arise, and to further develop 

funding sources. Long-term agency collaboration through coordination with the Columbia River Gorge 

Commission and partnering agency representatives is likely to yield the greatest success in funding priority 

improvements.

The Congestion and Safety Toolkit identifies and describes tools and strategies to improve safety and relieve

congestion along SR 14 and at several key recreation access sites in the study area, and the lead agency 

likely to sponsor future project development, including further environmental planning, project design 

and securing funding for construction, operation and maintenance of multimodal access improvements. 

The process to secure funding for potential projects on SR 14 or other state highways in the study area 

differs from those projects exclusively on federal lands.

Adjust Plan

Implement

Evaluate & Learn

I m p l e m e n t a t i o n

evaluate and modify strategies in response to actual 

findings for specific sites and resources.

As the strategies and projects presented in this 

report are refined, formalized, and implemented, 

land managers and enforcement agencies must 

regularly evaluate their effectiveness to meet 

management objectives. Evaluating and adjusting 

approaches should occur on a regular basis as 

user behaviors shift, new opportunities are made 

available, and other issues arise.

A D A P T I V E M A N A G E M E N T C Y C L E

Implementation
82 SR 14 and Dog Mountain Congestion and Safety Study

Federal Land Projects

Funding Sources

Potential projects on federal lands external to 

state highway rights-of-way may be funded 

directly through federal grants on a merit basis 

and requiring a formal application process.

The Federal Lands Access Program (FLAP) is a 

popular source to help fund potential safety and 

access projects on federal lands. A combination 

of FLAP and other federal grant and state funding 

programs are a resource to fund SR 14 safety and 

access improvements. Appendix D contains a 

comprehensive list of federal, state and private 

funding sources for the range of potential projects 

as outcome from the SR 14 and Dog Mountain 

Congestion and Safety Study.

I m p l e m e n t a t i o n

SR 14 Projects

Projects along SR 14 that are identified for 

implementation from the SR 14 and Dog Mountain 

Congestion and Safety Study will be programmed 

for funding and prioritization in the Statewide 

Transportation Improvement Program (STIP). 

The current STIP (2022-2025) prioritizes the state’s 

multimodal transportation program of state, local, 

tribal, and public transportation (transit) projects 

through year 2025, usually sourced from one of the 

WTP modal plans, including highways, streets, roads, 

railroads, transit hubs, park and ride lots, bridges, 

sidewalks, bike lanes, ferry terminals, trails and 

safety projects funded with federal, state, tribal and 

local sources.

The STIP is a calendar year document and 

is developed on an annual basis from local, 

metropolitan planning organizations (MPOs), and 

regional transportation planning organizations 

(RTPOs) transportation improvement programs 

(TIPs). Only those projects programmed in the STIP 

can be authorized by FHWA and the Federal Transit 

Administration (FTA) to utilize federal funds. Once 

projects are approved in the STIP, agencies may 

request federal fund authorization of the project. 

SR 14 and Dog Mountain Congestion and 

Safety Study

Skamania and Klickitat Regional Transportaiton Plans 

(RTPs)

Washington Statewide Transportation Improvement Program 

(STIP)

The process to confi rm and secure funding of priority state highway 

projects originating from the SR 14 and Dog Mountain Congestion and 

Safety Study

update

update
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SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

DECEMBER 2022