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

APPENDICES
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Appendix A

Existing Transportation 

Conditions and Environmental 

Scan
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SR 14 AND DOG MOUNTAIN

CONGESTION AND SAFETY STUDY

Existing Conditions Report

Contract No. DTFH7015D00002, Task Order No. 69056720F000058:

WA DOT 14(4), Congestion and Safety Mitigation Plan

WA DOT 14(3), Dog Mountain Trailhead Study

Prepared for:

Western Federal Lands Highway Division

Prepared by:

David Evans and Associates, Inc.

2100 South River Parkway, Suite 100

Portland, Oregon 97201

2022
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT i

CONTENTS

Executive Summary....................................................................................................................................... v

Policy and Regulatory Environment.......................................................................................................... v

Key Issues.................................................................................................................................................. v

Context..........................................................................................................................................................1

Introduction ..............................................................................................................................................1

Background ...............................................................................................................................................1

Study Area.................................................................................................................................................2

Relevant Plans and Projects......................................................................................................................3

Goals and Objectives.....................................................................................................................................5

Policy and Regulatory Environment..............................................................................................................7

Columbia River Gorge National Scenic Area Management Plan ..............................................................7

Recreational Setting....................................................................................................................................13

Recreation Sites ......................................................................................................................................13

Recreational Opportunities.....................................................................................................................22

Transportation Conditions..........................................................................................................................23

Physical Features and Characteristics of Transportation Facilities.........................................................23

Roadway Geometrics on SR 14 ...............................................................................................................26

Traffic Conditions....................................................................................................................................27

Multimodal Transportation Facilities and Use........................................................................................30

Safety History and Trends.......................................................................................................................34

Environmental Scan ....................................................................................................................................45

Physical Environment..............................................................................................................................45

Biological Resources................................................................................................................................57

Social and Cultural Resources.................................................................................................................72

References ....................................................................................................................................................1

FIGURES

Figure 1. Study Area......................................................................................................................................2

Figure 2. Dog Mountain Focus Area..............................................................................................................3

Figure 3. General Management Areas and Special Management Areas in the CRGNSA .............................8

Figure 4. Land Use in the CRGNSA Adjacent to SR 14...................................................................................9

Figure 5. SR 14 Annual Average Daily Traffic (AADT), 2015–2019..............................................................28
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT ii

Figure 6. SR 14 Forecasted Year 2040 Annual Average Daily Traffic (AADT)..............................................28

Figure 7. Map of Public Transportation Services........................................................................................31

Figure 8. Travel Characteristics of Columbia Gorge Express Riders............................................................34

Figure 9. Number of Crashes by Severity and Year.....................................................................................35

Figure 10. Crashes by Severity ....................................................................................................................36

Figure 11. Crashes by Severity ....................................................................................................................37

Figure 12: Collision Type of Fatal Crashes...................................................................................................38

Figure 13. Crash Frequency (Number of Crashes) by Common Crash Type...............................................38

Figure 14. Crash Frequency (Number of Vehicle-crashes) by Contributing Factor (Crash Cause) .............39

Figure 15. Crashes by Vehicle Type and Number of Vehicles Involved ......................................................40

Figure 16. Crash Density (1 of 2).................................................................................................................41

Figure 17. Crash Diagram at Coyote Wall (Top) and Syncline Trailhead (Bottom).....................................43

Figure 18. Seismogenic Hazards in the Study Area (1 of 2) ........................................................................49

Figure 19. Landslide Hazards in the Study Area (1 of 2) .............................................................................51

Figure 20. Wetlands and Waters in the Study Area (1 of 2) .......................................................................53

Figure 21. FEMA Floodplains and Floodways in the Study Area (1 of 2) ....................................................55

Figure 22. Natural Areas and Priority Habitats in the Study Area (1 of 2)..................................................62

Figure 23. ESA Critical Habitat in the Vicinity of the Study Area (1 of 2)....................................................70

Figure 24. Land Ownership in and Adjacent to the Study Area..................................................................74

TABLES

Table 1. Plan Goals and Objectives...............................................................................................................6

Table 2. Special Management Area and General Management Area Parking Provisions..........................10

Table 3. Study Area Recreation Sites..........................................................................................................14

Table 4. Inventory of Study Area Bridges and Culverts ..............................................................................24

Table 5. SR 14 Posted Speeds in the CRGNSA in the Study Area................................................................25

Table 6. SR 14 Geometric Design Criteria ...................................................................................................26

Table 7. Truck Percentages on SR 14 by Mile Post .....................................................................................30

Table 8. SR 14 Intersections Exceeding Critical Crash Rate (2015–2019)...................................................44

Table 9. SR 14 Segments Exceeding Critical Crash Rate (2015–2019)........................................................44

Table 10. Rare Plants Potentially Occurring in the Study Area...................................................................57

Table 11. Natural Areas Within or Adjacent to the Study Area..................................................................59

Table 12. Priority Habitats in the CRGNSA..................................................................................................61

Table 13. Federally Listed Threatened and Endangered Species Potentially Occurring in the Study Area 64

Table 14. Sensitive Species Potentially Occurring within the Study Area ..................................................66

Table 15. Demographic and Economic Data near Study Area - Clark County ............................................72

Table 16. Demographic and Economic Data near Study Area - Skamania County .....................................73

Table 17. Demographic and Economic Data near Study Area - Klickitat County........................................73

Table 18. Historic Highway Bridges in the Study Area................................................................................76
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EXISTING CONDITIONS REPORT iii

ABBREVIATIONS/ACRONYMS

AADT Annual Average Daily Traffic

AASHTO American Association of State Highway Transportation Officials

ADA Americans with Disabilities Act

BFE Base Flood Elevation

BGEPA Bald and Golden Eagle Protection Act

BIA Bureau of Indian Affairs

BNSF BNSF Railway

CAT Columbia Area Transit

CFR Code of Federal Regulations

CRGC Columbia River Gorge Commission

CRGNSA Columbia River Gorge National Scenic Area

DAHP Department of Archaeology and Historic Preservation (Washington State)

DAR Dial-A-Ride

DHV Design Hourly Volume

DPS Distinct Population Segment

EO Executive Order

ESA Endangered Species Act

ESU Evolutionary Significant Unit

FEMA Federal Emergency Management Agency

FGTS Freight and Good Transportation System

FHWA Federal Highway Administration

FLAP Federal Lands Access Program

FTA Federal Transit Administration

GCR General Condition Ratings

GIS Geographic Information System

GMA General Management Area

iPAC Information for Planning and Consultation (USFWS)

KVA Key Viewing Area

LE Listed Endangered

LT Listed Threatened

MATS Mt. Adams Transportation Service

MBTA Migratory Bird Treaty Act

MEV Million Entering Vehicles

MP Mile Post

MPO Metropolitan Planning Organization

mph Miles Per Hour

MVM Million Vehicle Miles

N/A Not Applicable

NEMT Non-Emergent Medical Transportation

NEPA National Environmental Policy Act

NMFS National Marine Fisheries Service
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EXISTING CONDITIONS REPORT iv

NRCS National Resource Conservation Service

NRHP National Register of Historic Places

ODOT Oregon Department of Transportation

PHS Priority Habitats and Species

RCW Revised Code of Washington

RIC Recreation Intensity Class

SFHA Special Flood Hazard Area

SMA Special Management Area

SOC Species of Concern

SR State Route

SSD Stopping Sight Distance

USACE United States Army Corps of Engineers

USFS United States Forest Service

USFWS United States Fish and Wildlife Service

USGS United States Geological Survey

VMT Vehicle Miles of Travel

VPD Vehicles Per Day

WA Washington

WDFW Washington Department of Fish and Wildlife

WNHP Washington Natural Heritage Program

WSDOT Washington Department of Transportation

WSPMS Washington State Pavement Management System
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT v

EXECUTIVE SUMMARY

The Federal Highway Administration (FHWA) is partnering with the United States Forest Service (USFS) 

and the Washington State Department of Transportation (WSDOT) to develop a congestion and safety 

study for and 80-mile stretch of Washington State Route (SR) 14 and the Dog Mountain Trailhead.

This Existing Conditions Report identifies roadway conditions and areas of concern for the study area, 

including a scan of environmental resources. The existing conditions analysis performed includes a review 

of previous studies, adopted plans and policies, and a desktop planning-level examination of the study 

area based on available historic traffic data, collision history, field observations, aerial imagery, 

Geographic Information System (GIS) data, and input from project partners. 

POLICY AND REGULATORY ENVIRONMENT

Because this portion of SR 14 runs through the Columbia River Gorge National Scenic Area (CRGNSA), any 

changes to the corridor will be subject to the CRGNSA Management Plan. The CRGNSA Management Plan 

is sponsored and adopted by the Gorge Commission, a 13-member body comprised of 12 voting members, 

three each from Washington and Oregon (Governor-appointed) and one per county (six counties). A 

thirteenth non-voting member is appointed by the U.S. Secretary of Agriculture who must be from the 

USFS. The CRGNSA Management Plan was originally adopted in 1991, updated in 2004 and 2016, and a 

new revision is adopted as of October 2020. The USFS is charged with developing the land use regulations 

for federal land in special management areas: General Management Areas (GMAs), Special Management 

Areas (SMAs), and Urban Areas. The USFS is the principal landowner for SMAs, whose uses are more 

restricted than designated GMAs and which are the focus of this planning process. 

The CRGNSA Management Plan further designates policies and provisions related to development for four 

recreation intensity classes (RICs) in GMA and SMA lands. The RIC of any GMA or SMA land dictates the 

allowable recreation uses. Specific to the development of the SR 14 and Dog Mountain Congestion and 

Safety Plan, the RIC of a recreation site will play an important role in alternatives development and 

selection because it will dictate the size and type of improvements that can be made. 

KEY ISSUES

PARKING AT RECREATION SITES

The evaluation of existing conditions determined recreation sites within the study area that experience 

recurring instances of parking overflow that result in visitors parking on the shoulder of the adjacent 

county road or along SR 14. 

CONGESTION

Traffic volume on SR 14 varies significantly in the study area and generally does not exceed the capacity 

limits of SR 14 in the rural sections. Congestion typically occurs within the urban communities during 

morning and evening rush hours, and at popular recreation sites during peak tourism seasons (typically 

spring and summer).

Parking lots at these popular recreation sites fill up and overflow on weekends during peak seasons, which 

can create safety and congestion concerns as people park on the shoulders of adjacent roads. In areas 

such as the Dog Mountain Trailhead, this parking overflow has started to happen on Fridays and Mondays 
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT ii

as well. Traffic and visitor use are expected to increase in the future, particularly at locations most 

accessible from urban areas. Figure E-1 summarizes those recreation sites along SR 14 that experience 

recurring parking overflow. Figure E-1 also notes the eight segments along the SR 14 corridor (in 10-mile 

increments) that this report uses to summarize safety issues and characteristics in the study area.

SAFETY

This existing conditions analysis looked at five years of crash data along SR 14 to determine locations 

where the number of crashes exceed the average. The following highway sections of SR 14 were flagged 

for further review:

• West end of CRGNSA to Cape Horn Trailhead (Segment A)

• Doetsch Ranch Road to West Bonneville (Segment B)

• Wishram to east end of the CRGNSA (Segment H)

The most common types of crashes in the corridor were collisions with a guardrail along rural sections of 

SR 14. Rear-end collisions were the second most common crash type, often in the location of popular 

recreation access roads or features along SR 14. These crash types are consistent with the character of

SR 14 character as a scenic, winding highway with many cross streets, turnouts, access points, and 

trailheads. An added safety concern along the corridor is the continued rockfall hazards in some sections 

along SR 14. 

The most common contributing factors to crashes were drivers exceeding reasonable speeds and 

inattention. 

GEOMETRIC ROADWAY CONDITIONS

Some sections of SR 14 traverse a combination of vertical and horizontal curves that restrict visibility and 

can pose safety hazards, particularly on the west end of the study area along the stretches of SR 14 

through Cape Horn (Segment A) and Beacon Rock State Park (Segment B). Observed speed differentials 

between drivers along SR 14 is a source of reported driver frustration and a potential safety hazard. 

Figure E-1. Recreation Sites with Recurring Parking Overflow in the Study Area
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EXISTING CONDITIONS REPORT iii

ENVIRONMENTAL SETTING

An environmental scan of the study area was completed based on readily available geographic 

information system (GIS) mapping data and reported studies and does not include site information 

verified through a site visit. Potential access and safety improvement options identified in the congestion 

and safety study will inform later project development in compliance with the National Environmental 

Policy Act (NEPA) and other applicable federal and state regulations.

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

measures, for natural resources. Proposed developments in the CRGNSA are required to inventory natural 

resources and prepare plans to protect, manage, and/or mitigate impacts to them in consultation with 

the appropriate state and federal agencies. 

Resources with specific preservation directives in the CRGNSA Management Plan include:

• Wetlands, lakes, and ponds

• Streams and riparian habitats

• Priority habitats and sensitive wildlife sites

• Rare plants and natural areas

• In the SMAs, forest resources through the review of forest practices
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 1

CONTEXT

INTRODUCTION

The Federal Highway Administration (FHWA) is partnering with the United States Forest Service (USFS) 

and the Washington State Department of Transportation (WSDOT) to complete a congestion and safety 

study of Washington State Route (SR) 14 and the Dog Mountain Trailhead.

This Existing Conditions Report identifies roadway conditions and areas of concern for the study area. The 

existing conditions analysis performed includes a review of previous studies, adopted plans and policies, 

and a desktop planning-level examination of the corridor based on historic traffic data, collision history, 

field observations, aerial imagery, Geographic Information System (GIS), and input from project partners. 

This report also includes a scan of environmental resources within the study area that may be affected by 

potential improvements arising from the SR 14 and Dog Mountain Congestion and Safety Study. The 

planning-level environmental overview is based solely on a desktop research of data, reports, and plan 

documents and may be used to support future environmental documentation required for any 

improvements forwarded from this planning process.

BACKGROUND

SR 14 serves the Washington side of the Columbia River Gorge National Scenic Area (CRGNSA), connecting 

communities and providing access to recreational sites. An increased use of trails and other recreation 

destinations along SR 14 has impacted user experiences, particularly on weekends and holidays between 

May and October. As the population of the region and its popularity continues to grow, the large number 

of people who use SR 14 to access Columbia River Gorge (the “Gorge”) recreation sites and pass through 

the corridor places a strain on the transportation facilities in the CRGNSA. 

The high vehicular demand on the transportation system into and through the Gorge creates traffic delays 

and safety concerns for both motorists and other users, especially pedestrians and bicyclists using the 

roadway to access recreation sites. Traffic volume and site data indicate that the trend will be continued 

growth in user activity. To prevent further degradation of SR 14 and key CRGNSA accesses, strategies need 

to be developed to address crowding and congestion.

The intent of the study is to develop a comprehensive package of strategies to address the transportation 

and safety needs of those using SR 14 to access the CRGNSA. The study will help facilitate early 

coordination with local, state, and federal agencies; the public; and other stakeholders and to screen 

possible improvement options.

FEDERAL LANDS ACCESS PROGRAM

In 2018, two applications to the Federal Lands Access Program (FLAP) resulted in funding for the study. 

The FLAP was established to improve transportation facilities that provide access to, are adjacent to, or 

are located within federal lands. FLAP supplements state and local resources for transportation facilities 

and emphasizes high-use recreation sites and economic generators. 
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EXISTING CONDITIONS REPORT 2

STUDY AREA

The study area (Figure 1) includes SR 14 within the CRGNSA and connecting access roads and parking lots, 

including facilities that provide access to recreation sites. The study will give a special focus to the Dog 

Mountain Trailhead and its existing parking lot. 

Figure 1. Study Area

SR 14

The SR 14 corridor in the study area 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. 

SR 14 connects the Portland and Vancouver metro area at its west end 

with the Washington Gorge communities of North Bonneville, 

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

Wishram. The SR 14 corridor 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 recreational sites. The SR 14 corridor has historically 

carried substantial tourist and recreational traffic and is a key economic 

link for the rural communities in the Gorge.

Lewis and Clark Trail 

Scenic Byway

The central portion of this 572-

mile byway, which traces the 

route taken by Lewis and Clark's 

famous Corps of Discovery 

Expedition, runs through the 

CRGNSA. The byway follows the 

twists, turns, and hills of the 

Columbia River, offering glimpses 

of lush Oregon slopes and 

providing numerous roadside 

stops, including several historic 

markers.
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EXISTING CONDITIONS REPORT 3

DOG MOUNTAIN FOCUS AREA

The Dog Mountain and Augspurger Mountain 

Trail System (commonly referred to as Dog 

Mountain) is accessible from SR 14 at MP 53.7 

on the north side of the highway, 

approximately 10 miles east of Stevenson, 

Washington (see Figure 2). The Dog Mountain 

focus area includes the existing gravel parking 

lot and adjacent USFS lands that could 

potentially serve as a site for relocation of the

trailhead and parking lot.

RELEVANT PLANS AND PROJECTS

This section summarizes the plans and projects relevant to the study area and the Study.

GORGE REGIONAL TRANSIT STRATEGY

The Gorge Regional Transit Strategy is currently in Phase I of planning, which includes strengthening 

partnerships, completing foundational assessments of transit in the Gorge, and developing a regional 

vision. This bi-state effort includes participation by representatives from the Oregon Department of 

Transportation (ODOT), WSDOT, the Mid-Columbia Economic Development District and Columbia Area 

Transit (CAT). Phase II (not currently funded) will focus on a more detailed implementation strategy and 

deeper operational assessments. 

Relevance: The Gorge Regional Transit Strategy encourages coordination between transit 

agencies in the CRGNSA. Transit is anticipated to be a component of any potential solution at Dog 

Mountain and an important tool for providing access and managing congestion at other 

recreation sites in the CRGNSA. 

BEACON ROCK ENTRANCE ROAD REALIGNMENT PLANNING PROCESS

Washington State Parks and Recreation Commission is undertaking a planning process to renovate the 

main park entrance at Beacon Rock State Park. The project primarily addresses traffic and visitor safety 

where SR 14 intersects the entrance to Beacon Rock State Park. The purpose of the project is to design 

safer parking, realign or relocate the vehicle entrance, and analyze how to best separate pedestrian and 

vehicle traffic. The current road alignment and campground entrance were designed in the 1930s. Park 

access improvements are needed to address an expected increase in park visitation, the volume and speed 

of SR 14 traffic, and the lack of sufficient separation of pedestrian and vehicle traffic entering and leaving 

the park.

Relevance: The preferred concept from the Beacon Rock Entrance Road planning process will be 

considered in the analysis of options for the Study.

SR 14 AT WIND RIVER ROAD - INTERSECTION IMPROVEMENTS

In 2019, WSDOT worked with Skamania County to construct a roundabout at the intersection of SR 14 and 

Wind River Road. The roundabout was the preferred design to improve safety, traffic flow, and access 

between Carson and SR 14. 

Figure 2. Dog Mountain Focus Area
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EXISTING CONDITIONS REPORT 4

Relevance: Other intersections in the SR 14 corridor exhibit deficiencies like the intersection of 

SR 14 at Wind River Road.

1997 SR 14 CORRIDOR MANAGEMENT PLAN

In the mid-1990s, WSDOT worked with various stakeholders on the Washington side of the Gorge to 

define and guide highway improvement projects through the CRGNSA. The SR 14 Corridor Management 

Plan consists of three independent reports: SR 14 Corridor Strategy and Action Plan, SR 14 Supplemental 

Highway Design Guidelines, and SR 14 Route Development Plan. 

Relevance: The SR 14 Corridor Management Plan remains applicable and is referenced by the 

WSDOT Highway System Plan for guidance today. The deficiencies and needs identified in the 

1997 plan informed the development of this Existing Conditions Report. 
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 5

GOALS AND OBJECTIVES

The goals and objectives provide a framework for shaping the Study and will be the basis for the formation 

of evaluation criteria to determine which potential strategies, projects, programs, and pilot projects best 

meet the needs of the Study. Goals provide broad direction for what the Study hopes to achieve; 

corresponding objectives provide more detail on how to achieve the goal or articulate the desired specific 

outcomes related to the goal. Table 1 summarizes the goals and objectives of the Study.

Because the Study focuses on two study area elements (SR 14 and Dog Mountain), vision statements were 

developed that clarify the overall mission for each:

SR 14 Vision

To promote safe access to high-use recreational areas in the Columbia River Gorge National Scenic 

Area through the identification of opportunities to address congestion and safety concerns while 

protecting scenic, natural, cultural, and recreational resources.

Dog Mountain Vision

To manage congestion at, and promote safe access to, the Dog Mountain Trailhead through the 

identification of design alternatives that are consistent with the CRGNSA Management Plan.
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EXISTING CONDITIONS REPORT 6

Table 1. Plan Goals and Objectives

Goals Objectives

Safety

Enhance safety for all 

transportation modes. 

a. Reduce conflicts among highway and recreational site users.

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

severe injury vehicle, 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 

modes that enhance mobility at designated high-priority locations.

b. Reduce reliance on single-occupancy vehicle trips

c. Improve travel reliability and efficiency 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 fiscally sustainable 

plan for the corridor through 

responsible stewardship of 

financial resources.

a. Prioritize improvements with a higher return on investment.

b. Pursue grants and collaboration with other agencies to efficiently 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 information about transportation 

options programs, services, and modes.

e. Enhance access to recreation sites for low-income and minority 

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.

Note: Any potential solution 

must meet CRGNSA goals.

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.
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 7

POLICY AND REGULATORY 

ENVIRONMENT

COLUMBIA RIVER GORGE NATIONAL SCENIC AREA MANAGEMENT PLAN 

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

was passed into law by Congress in 1986, protects the Columbia River Gorge preservation and growth. 

Under the National Scenic Area Act, the National Scenic Area Management Plan (CRGNSA Management 

Plan) was created to ensure that the land in the CRGNSA is used consistently with the purposes and 

standards of the National Scenic Area Act.

The Columbia River Gorge Commission approved the revised 2020 CRGNSA Management Plan on 

October 13, 2020, and the revised plan has been transmitted to the USFS for concurrence. Following USFS 

review, the Columbia River Gorge Commission will transmit the CRGNSA Management Plan to the 

counties in the National Scenic Area to incorporate into their respective county ordinances.

LAND USE IN THE CRGNSA

The Gorge Commission and counties within the CRGNSA grant land use approvals jointly according to 

uses outlined the CRGNSA Management Plan. The CRGNSA includes three distinct areas: General 

Management Areas (GMAs), Special Management Areas (SMAs), and Urban Areas (see Figure 3). The 13 

Urban Areas (9 in Washington and 4 in Oregon) are exempt from regulations that apply to the GMAs and 

SMAs. USFS is the principal landowner for SMAs, whose uses are more restricted than those of 

designated GMAs. 

Land use varies throughout the study area, although land uses are primarily classified as one of the 

following four land use designations: 

1. Agriculture

2. Forest/Woodland

3. Open Space

4. Urban Area/Rural Center

Figure 4 shows the land use designations within the study area. Along the western portion of the study 

area, the primary land use designation is Forest/Woodland and is managed by the USFS. Though the entire 

study area falls within the CRGNSA, the western portion runs through Beacon Rock State Park as well. 

Nearer the center of the study area, around the cities of Stevenson and Carson, land use designations 

primarily include Urban Area/Rural Center and Commercial Forest classifications. East of the community

of Lyle, land use designation becomes primarily Agriculture, with small towns along SR 14 classified as 

Rural Center and several allotments to the Bureau of Indian Affairs (BIA).
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EXISTING CONDITIONS REPORT 8

Figure 3. General Management Areas and Special Management Areas in the CRGNSA
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 9

Figure 4. Land Use in the CRGNSA Adjacent to SR 14
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EXISTING CONDITIONS REPORT 10

POLICY AND REGULATIONS RELATED TO TRANSPORTATION FACILITIES

The CRGNSA Management Plan further designates policies and provisions related to development for four 

recreation intensity classes (RICs) in GMA and SMA lands. The RIC dictates the allowable recreation uses

of the land. A RIC of 1 indicates that the area is suitable for very low intensity recreation and has more 

stringent guidelines than, at the other end of the recreation intensity classes, a RIC of 4, which indicates 

the area is suitable for high intensity recreation. With respect to the development of the Study, the RIC of 

a recreation site will play an important role in alternatives development and selection. Table 2 describes 

the parking provisions for each recreation intensity class in SMA and GMA lands.

Table 2. Special Management Area and General Management Area Parking Provisions

RIC 1

(Very Low Intensity)

RIC 2

(Low Intensity)

RIC 3

(Moderate Intensity)

RIC 4

(High Intensity)

General 

Management 

Area Lands

• Parking for a 

maximum of 10 

vehicles

• Mass transit 

accommodations 

should be 

considered (e.g., 

bus parking)

• Parking for a 

maximum of 25 

vehicles

• Mass transit 

accommodations 

should be 

considered (e.g., 

bus parking)

• Parking for a

maximum of 75 

vehicles

• Mass transit 

accommodation is 

required (e.g., bus 

parking)

• Parking for a 

maximum of 250 

vehicles

• Mass transit 

accommodation is 

required (e.g., bus 

parking)

Special 

Management 

Area Lands

Parking for a 

maximum of 10 

vehicles

Parking for a

maximum of 25 

vehicles

• Parking for a 

maximum of 50 

vehicles (Parking for 

75 vehicles may be 

provided with 

enhanced mitigation)

• Mass transit 

accommodation is 

required (e.g., bus 

parking)

• Parking for a 

maximum of 200 

vehicles (Parking for 

250 vehicles may be 

provided with 

enhanced mitigation)

• Mass transit 

accommodation is 

required (e.g., bus 

parking)

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

Other parking requirements included in the CRGNSA Management Plan relevant to the SR 14 corridor 

include: 

• Parking areas must be designed to fit existing topography to the extent possible.

• Parking areas with more than 50 spaces must be divided into discrete, landscaped parking 

islands.

• Landscape buffers are required, with a greater buffer for larger parking lots.

• Parking areas must be set back from the Columbia River and major tributaries by at least 

100 feet.

Additional relevant transportation policies and provisions include: 

• Alternative forms of transportation, such as transit, are strongly encouraged.

• New development and reconstruction of scenic routes must include provisions for bicycle lanes. 
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 11

Washington State Policy and Plan Oversight

Every four years the Washington Transportation Commission is required to prepare or update a 

comprehensive and balanced statewide transportation policy plan, currently reflected in the Washington 

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

Washington State Department of Transportation (WSDOT) developed goals and objectives based on 

agency and public input. WTP 2040 includes recommendations to increase revenues dedicated to 

transportation system safety education and enforcement activities, increases in reliable multimodal travel 

for people and goods in communities across the state, and encouraging the design and development of 

communities that make walking and biking more viable for more people and increase opportunities for 

active travel for all ages. 

WSDOT develops and administers multiple long range modal, safety, infrastructure and community 

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

Congestion and Safety Study are noted here.

2007-2026 Washington State Highway System Plan: Element of WTP 2040 that addresses current and 

forecasted highway needs, administers policy on highway functional classification and access 

management. The HSP plan identifies 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 identified congested highway segment needs, specific prioritized strategies for addressing them, 

and performance measurements to determine the effectiveness 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 effects 

of infrastructure decisions on safety and mobility. The ATP provides criteria for prioritizing and evaluating 

investments, and recommends strategies for each of its five 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.

State Highway Design Standards: The design of potential intersection or highway segment projects along 

SR 14 as implementation from the SR 14 and Dog Mountain Congestion and Safety Study will follow the 
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 12

2021 Washington Design Manual. The Design Manual provides policies, procedures, and methods for 

developing and documenting the design of improvements to the state highway transportation network. 

The Design Manual emphasizes practical design as a means to produce environmentally conscious, 

sustainable, context-based designs that achieve the purpose and need for the lowest cost. Practical design 

considers the needs of all users, fostering livable communities and modally integrated transportation 

systems used safely by all, including motorists, freight haulers, transit, pedestrians, and bicyclists.
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 13

RECREATIONAL SETTING

The Columbia River Gorge is a valuable resource to 

residents and tourists of the Portland and 

Vancouver metropolitan areas and communities in 

the Gorge. The Gorge has become a popular tourism 

destination that attracts both national and 

international visitors. The National Scenic Trail 

known as the Pacific Crest 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 attractions in the area. On the 

Washington side of the Columbia River, SR 14 

provides access to recreational activities such as 

hiking, mountain biking, fishing, wind surfing, bird 

watching, picnicking, and sightseeing. The 

landscape along SR 14 and throughout the Gorge is 

dramatic and varying, including mountains, fields, 

wildflowers, marshlands, wildlife refuges, and the 

Columbia River Gorge itself.

As the Columbia River Gorge continues to gain 

national and international recognition as a popular 

recreation and tourism destination, and as the 

surrounding metropolitan areas continue to grow, it 

is expected that the Gorge will continue to see an 

increase in recreation and tourism visitors, 

activities, and services.

RECREATION SITES

Various recreation activities are available within the study area along SR 14. Though overnight camping 

areas exist along the corridor and overnight camping is a popular activity throughout the Gorge, the 

trailheads within the study area primarily accommodate day-use recreational activities, and may include 

paved parking, picnic areas, water, restrooms, and other day-use amenities. 

Given the rural location of most of the trailheads, the primary mode of transportation is a personal vehicle, 

maintaining a need for adequate trailhead parking or accommodation of shuttle service vehicles. Parking 

area capacity and conditions vary depending on the trailhead location, ranging from gravel surfaced, 

shoulder parking with limited amenities, to an asphalt paved parking lot with covered picnic areas and 

abundant day-use amenities. Regardless of the capacity and conditions, most trailhead parking areas 

reach maximum capacity on the weekend throughout the summer season, with an increasing number of 

days in which little to no parking may be available most of the day. 

Table 3 summarizes the popular recreation sites accessible within the study area, access location along 

SR 14, the agency that operates the site, parking details, and important land use information. 

 Dog Mountain Trail Spring Wildflowers
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 14

Table 3. Study Area Recreation Sites

Site

SR 14

MP County

Operated 

By Fee/Parking RIC1

Land 

Use

Parking

Overflow2

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/Park on SR 14 shoulder 1 SMA Yes

Cape Horn Trailhead / 

Salmon Falls Park and

Ride

26.4 Skamania

USFS / 

Skamania 

County

No fee/Paved 

parking area 2 GMA Yes

St. Cloud 29.9 Skamania USFS Fee/Paved 

parking 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/Paved 

parking area

4 SMA No

Beacon Rock State Park 

(Kueffler 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

Fee/Gravel and 

paved parking

areas

3-4 SMA Yes

Bonneville Discovery 

Trails 37.6 Skamania

Bonneville 

Trails 

Foundation

No fee/Paved 

parking areas 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

Pacific 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 County

Fee/Paved 

parking areas 4 SMA No

Dog Mountain Trail 53.7 Skamania USFS

Fee & Seasonal 

Permit/Gravel 

parking area

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 

County

Fee/Paved 

parking areas 2/4 GMA Yes

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
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 15

Site

SR 14

MP County

Operated 

By Fee/Parking RIC1

Land 

Use

Parking

Overflow2

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) 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 

the 

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 and 

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

Acronyms: USFWS = United States Fish and Wildlife; 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; BIA = Bureau of Indian Affairs

Notes:

1. The RIC identified is for the parking area; the RIC of the recreational area may be different.

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

SITES WITH RECURRING CONGESTION

Of the recreation sites summarized in Table 3, several experience recurring instances of parking overflow 

that result in visitors parking on the shoulder of the adjacent county road or along SR 14. These locations 

are described in further detail below. 
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 16

Cape Horn Lookout

Recreation:

The Cape Horn Lookout provides panoramic views of 

the Gorge from the south shoulder of SR 14 near MP

25. There is space for approximately eight vehicles to 

park in the shoulder, adjacent to eastbound SR 14 

traffic. There is no physical barrier between highway 

traffic and vehicles parked in the shoulder. People 

often exit their vehicles to take photos. A guardrail 

provides the only barrier between the roadway 

shoulder and the sheer drop below. 

Existing Conditions:

The lookout at Cape Horn Lookout is accessed from SR 

14 and is within WSDOT right of way. The stretch of 

highway leading to and from the lookout contains 

steep grades and curves that limit sight distance. In 

the area where vehicles park in the shoulder and 

pedestrians move about to take photos, the shoulder 

width varies between approximately 10 feet and 15 

feet. There is no advance signage to indicate vehicles 

may be suddenly entering and leaving the highway. In addition to congestion at the lookout, freight 

vehicles traveling westbound may slow due to the grade, and the area is known for rockfalls that may land 

on the roadway and remain there. 

Cape Horn Trailhead / Salmon Falls Park and Ride

Recreation:

The Cape Horn Trail system provides approximately 8 miles of moderate hiking on both sides of SR 14 

through a forest of coniferous and deciduous trees, with spring wildflowers, autumn foliage, and 

breathtaking views of the Gorge. The trailhead is developed, and parking is shared with the Salmon Falls

Park and Ride. Skamania County manages the parking lot, which includes 25 paved parking spaces and 

two dedicated Americans with Disabilities Act (ADA) spaces. There is a gravel area that can accommodate 

approximately six additional vehicles. An information kiosk and restrooms are provided for visitors’ use.

Existing Conditions:

The main parking lot is accessed from two roads

that are owned and maintained by Skamania 

County: Salmon Falls Road and Canyon Creek 

Road. The trail is extremely popular year-round,

and the parking lot frequently fills up by midmorning. When this occurs, vehicles will park on

the shoulder of both Salmon Falls Road and 

Canyon Creek Road, creating a situation in which 

trail users must walk in the roadway, potentially in 

conflict with vehicles. On the busiest days, dozens 

of cars line the county roads, hindering through Salmon Falls Park and Ride / Cape Horn Trailhead parking

Source: USFS

Looking east from Cape Horn Lookout

Parking along south side of SR 14 at Cape Horn Lookout
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 17

traffic and degrading the visitor and neighborhood experience. Due to the COVID-19 pandemic, other 

nearby trails have been closed, and the Cape Horn Trailhead has experienced additional use.

The existing parking lot is in a GMA with a RIC of 2, thus limiting the ability to expand the existing parking 

lot beyond its present size in the current location. The 2009 Cape Horn Trail Recreation Plan 

Environmental Assessment identified opportunities to provide additional parking. 

Beacon Rock State Park and Beacon Rock Trailhead

Recreation:

Beacon Rock State Park is a 4,458-acre, year-round park near its namesake attraction, Beacon Rock. The 

rock is the core of an ancient volcano, rising more than 800 feet over the Columbia River, detached from 

the surrounding rocks. The state park provides opportunities for camping, hiking, wildlife viewing, 

picnicking, boating, biking, equestrian use, fishing, and rock climbing. The trailhead of the popular hike to 

the top of Beacon Rock is primarily accessed from a paved parking lot located just off the south shoulder 

of SR 14. There are 27 striped parking spaces and 2 dedicated ADA spaces, public restrooms, an 

information kiosk, picnic tables, and a water station for visitors’ use. A secondary parking lot is just west 

of the paved lot along the SR 14 shoulder and has approximately 25 informal, unpaved parking spaces and

shoulder access to the main parking lot and trailhead. A day pass or annual Discovery Pass is required for 

parking.

Existing Conditions:

Though there are many popular areas within Beacon Rock State Park, the most significant congestion is 

at the base of Beacon Rock along SR 14 between MP 34.7 and MP 35. In addition to the recreational 

activities on the south side of SR 14, the north side provides access to the park’s Ranger Station and 

popular Hamilton Mountain trails. When the parking lots along SR 14 fill up, cars find places to park on 

the shoulder of the highway. The existing alignment of the roads limits the sight lines of pedestrians 

crossing the highway and of vehicles traveling in the area, where the posted speed is 55 miles per hour 

(mph) on SR 14. The accesses to SR 14 are undefined in many areas, making it difficult for vehicles on 

SR 14 to anticipate where traffic will be entering and exiting the highway. 

Staff from Washington State Parks and 

Skamania County note that some park visitors 

mistakenly use Guptil Road while trying to 

locate the Hamilton Mountain Trailhead due to 

errors in cell phone navigation. Guptil Road is a 

gravel road not suited for heavy vehicle traffic.

A small sign has been installed on Guptil Road 

near SR 14 to direct travelers back toward 

Beacon Rock State Park. 

The existing parking lot is in an SMA with a RIC 

of 4 and adjacent to RIC 3. Washington State 

Parks has been undergoing a planning process 

to renovate the main park entrance at Beacon 

Rock State Park to address traffic and visitor 

safety. Some potential solutions from that 

process include improvements to the intersection of SR 14 at Kueffler Road and the intersection of SR 14 

Looking west from south shoulder of SR 14 near Beacon Rock 

Trailhead, depicting potential visibility concerns.
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 18

at Hamilton Mountain Road, additional signage, and improvements to the parking areas. The preferred 

alternative from the Washington State Parks Beacon Rock Entrance Road Realignment project will be 

included as an alternative in the SR 14 and Dog Mountain congestion and safety planning process. 

Dog Mountain Trail

Recreation:

Dog Mountain has become one of the most popular hikes in the CRGNSA. Dramatic wildflower displays 

and views of the Gorge draw hikers from around the region and beyond to this moderately difficult hike. 

Currently, the parking is an undeveloped gravel lot immediately adjacent to SR 14. Vault toilets are located 

a short walk up a hill, and there is an information kiosk for visitors’ use.

Existing Conditions:

Over the years, WSDOT and USFS have worked 

together to mitigate congestion and highway 

safety-related issues associated with the 

trailhead by developing a parking scheme that 

is used by USFS on-site staff to manage parking 

during peak visitation. The parking scheme, 

while initially effective, proved to be 

inadequate with the increasing use the site has 

experienced. Overflow parking has spilled onto 

the narrow shoulder of SR 14, and parking lot 

congestion has negatively impacted the egress, 

ingress, and flow of traffic in the parking lot. 

When parking overflows onto the shoulder of 

SR 14, recreationists walk along the narrow 

shoulder of SR 14 and the BNSF Railway (BNSF) railroad corridor to access the trailhead.

In 2015 during peak visitation, it was not 

uncommon to count more than 200 cars at any 

one time at this general parking area and along 

the shoulder of SR 14. This overwhelming 

situation may have contributed to several 

motor vehicle accidents (one fatal) along this 

stretch of the highway. This situation prompted 

the Skamania County Sheriff’s Office to 

convene a meeting of interagency partners to 

explore safety mitigation measures, which 

included: early warning signs, no parking signs, 

law enforcement, parking lot reconfiguration to

accommodate 70 to 80 cars, a shuttle bus to 

reduce congestion, and Variable Message Signs 

directing visitors to use the shuttle. Skamania County applied for and received an extension to its FLAP 

West End Transit Project, which included additional funding to implement these measures.

SR 14 Dog Mountain parking lot 

Source: USFS

Vehicles parked along SR 14 near Dog Mountain Trailhead

Source: USFS
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 19

While these interagency efforts improved the situation, recreation use has increased to the point where 

it now has overwhelmed the measures that have already been implemented. Despite the enforcement of 

no parking signs and towing. and increasing ridership of the shuttle bus, unauthorized parking along SR 14 

of up to a mile from the trailhead continued. This situation prompted USFS to implement an entry permit 

program to reduce the number of cars that can access the site. The permit system requires each hiker to

carry a permit or digital proof of permit each year on Saturdays and Sundays during peak spring wildflower 

season (typically mid-April to mid-June). Initial reports indicate user satisfaction of the permit system and 

the frequency and number of parking overflow events have decreased, but it is not expected to meet the 

long-term needs of the site. 

The existing parking lot is in an SMA that spans RICs of 1, 2 and 4, which may limit the ability to improve 

the parking lot in its current location and still maintain its current capacity. The land that serves the parking 

lot also spans three separate owners: WSDOT, USFS, and BNSF. 

Drano Lake Boat Ramp

Recreation:

Drano Lake is located where the Little White Salmon River flows into the Columbia River and is bordered 

on its south bank by SR 14. Drano Lake is a popular trolling fishery for Chinook salmon and steelhead trout. 

Skamania County manages the Drano Lake Boat ramp, which is accessed from the parking lot off SR 14. 

The parking lot is paved and has 45 striped spaces and 3 dedicated ADA spaces, as well as public 

restrooms. The parking lot is exclusively designated for tow vehicle and boat trailer combinations; single 

vehicles are not allowed to park in the lot unless a valid handicap permit is displayed.

Existing Conditions:

The Drano Lake parking lot is the only location to launch boats. During peak fishing seasons, the parking 

lot can fill up, and vehicles park on the south shoulder of SR 14, resulting in pedestrians crossing the 

highway. The existing parking lot is in a GMA, the majority of which is classified as RIC 4. There is a section 

of the parking area on the east edge that is classified as RIC 2, which is the same classification as the lake.

Swell City

Recreation:

Swell City to Spring Creek Hatchery is a popular windsurfing location in the Gorge. Windsurfers and 

spectators flock to this area, particularly on days with strong west winds and weekends. There is privately 

owned parking at the Swell City windsurfing launch area for approximately 400 feet along the south side 

of SR 14 near MP 61.1. The parking lot has a daily fee per person, and there are portable toilets and a 

small seating/picnic area available for viewing. Just east of Swell City is another launch area for 

windsurfing, with less parking and no amenities or fees. This location is also on private land along the 

south side of SR 14. There is more parking for river activities off Spring Creek Hatchery Road on the south 

side of SR 14 near MP 61.4. This launch area is managed by Washington State Parks, and there is a fee to 

park. There are also pit toilets and picnic tables at this site.

Existing Conditions:

On windy days and particularly on weekends, parking at Swell City fills up quickly. Vehicles will park 

wherever space is available, and vehicles are continually entering and exiting the highway. If parking fills 

up at the Spring Creek Hatchery Road parking area, visitors have been observed to park on the north side 

of SR 14 in a gravel area opposite Spring Creek Hatchery Road, resulting in pedestrians crossing the 

highway. The existing parking lots are in a GMA and classified as RIC 4.
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 20

Coyote Wall Trailhead and East Syncline Trailhead

Recreation:

Coyote Wall is a spectacular diagonal band of cliffs in the Columbia River Gorge east of the city of Bingen, 

also known around the Gorge as “The Syncline.” Coyote Wall Trailhead provides mountain bikers and 

hikers with access to more than 30 miles of trails with panoramic views of the Gorge and connects to the 

Catherine Creek trail system. The trail does not require any fees to visit, and the main trailhead provides 

a small, paved parking lot with approximately 25 striped parking spaces. A vault toilet and an information 

kiosk are also present at the trailhead for visitors’ use.

Coyote Wall can also be accessed from a trailhead approximately 1 mile to the east, at the junction of 

SR 14 and Old Highway 8. This trailhead is known as the Syncline Trail East Trailhead. Informal parking is 

available on the gravel shoulder. There are no other amenities at this site.

Existing Conditions:

The parking lot to Coyote Wall Trailhead is 

accessed from Courtney Road, which intersects 

with SR 14 near Look Lake. Courtney Road is 

maintained by Klickitat County. The Coyote 

Wall Trail is extremely popular, especially in the 

spring. The parking lot frequently fills up, and 

when this occurs, vehicles park on the shoulder 

of Courtney Road and SR 14. This creates a 

situation in which trail users must walk in the 

roadway, potentially in conflict with vehicles.

Courtney Road is narrow and winding, and 

when vehicles are parked on the shoulder, 

freight trucks have difficulty navigating the 

road.

The existing parking lot is in an SMA with a RIC 

of 2. This designation and the existing 

topography limit the ability to expand the 

existing parking lot beyond its present size in 

the current location.

The Syncline Trail East Trailhead is becoming 

more popular as an alternate parking and 

trailhead to the Coyote Wall Trailhead parking. 

Its proximity to SR 14 and Old Highway 8 and 

the lack of delineation could result in future 

safety issues if this location continues to grow 

in popularity. This informal Syncline Trail East 

Trailhead parking area is within an SMA and is 

classified mostly as RIC 2 but transitions to RIC 

1 on the northern corner. 

Courtney Road near the Coyote Wall Trailhead parking lot. 

Gravel shoulder at Syncline Trail East Trailhead
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 21

Conversations with USFS staff indicate that there have been instances when visitors unfamiliar with the 

area have parked in the SR 14 shoulder between Courtney Road and Old Highway 8 to try to access the 

Coyote Wall trail system. Visitors follow cell phone map information that falsely assumes there is a 

trailhead accessible from the side of the highway.

Catherine Creek Day Use Area

Recreation:

Connected to Coyote Wall, the Catherine Creek 

trail system is one of the best areas in the 

eastern Gorge for spring wildflower viewing and 

includes a network of multi-use trails for biking, 

hiking, and equestrian use. Amenities at the 

trailhead, which is open year-round, include 

approximately 20 to 25 informal, non-striped 

parking spaces in a gravel lot and an information 

kiosk for visitors. 

Existing Conditions:

The trailhead to the Catherine Creek Day Use 

Area and system of trails is located on Old 

Highway 8, approximately 1.5 miles northwest of 

the intersection of Old Highway 8 and SR 14. Old 

Highway 8 is owned and maintained by Klickitat 

County, and the existing parking lot straddles 

county and USFS land. There are trails on each side 

of Old Highway 8 and no formalized pedestrian 

crossing of the road. On the busiest days, vehicles

line the county road, hindering through traffic and 

degrading the visitor experience.

The existing parking area is within an SMA and is 

classified as RIC 2, thus limiting the ability to 

expand the existing parking lot beyond its present 

size in the current location. 

Klickitat River Delta

Recreation:

Klickitat River Delta is near the community of Lyle, where the Klickitat River flows into the Columbia River,

near the Balfour-Klickitat Trail and the Lyle Trailhead. The Lyle sandbar is known to locals as an ideal 

location for kitesurfing due to the expansive sandbar, shallow waters, and consistent winds. Because the 

sandbar is not maintained by a specific agency, visitors tend to park wherever they can. The gravel area 

on the north side of SR 14 west of the Klickitat Bridge serves as informal parking for visitors to the 

recreation opportunities in the area.

Existing Conditions:

The Lyle sandbar at Klickitat River Delta can be accessed only via an informal path system that crosses 

BNSF property and is becoming a safety concern. In addition to the safety concerns of pedestrians crossing 

Facing east toward Catherine Creek Trailhead on south side of Old 

Highway 8

Pedestrians crossing Old Highway 8 from Catherine Creek gravel 

parking lot, facing west
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 22

an active rail line and busy highway, the gravel parking area on the north side of SR 14 fills up and can 

overflow onto Old Highway 8, blocking access for heavy vehicles. A public process separate from this study 

will be needed to fully address the breadth and complexity of concerns at this location. 

The existing parking area is within a GMA and is classified as RIC 2. 

RECREATIONAL OPPORTUNITIES

Regional population and recreation are likely to continue to grow rapidly and managing congestion in the 

CRGNSA will continue to be a challenge. However, the pace of development or reconstruction of 

recreational opportunities and facilities (e.g., campgrounds, trails, picnic areas, trailheads) in the study 

area has not matched the pace of growth and increased use. As mentioned previously, many trailheads 

experience parking overflow. As a result, visitors park along nearby roadways, thus constricting traffic and 

causing unsafe highway driving and crossing conditions. The Study aimsto identify opportunities to spread 

demand throughout the CRGNSA and provide a menu of potential strategies to mitigate congestion and 

enhance safety. 

Dog Mountain

At Dog Mountain, although safety mitigation is the primary driver of any potential solution, USFS is also 

concerned about the overall parking and trailhead capacity of the site. USFS has documented impacts to 

the sensitive meadows that draw visitors to this hike; for example, encroachment of invasive weeds such 

as dandelions has been documented. The visitor experience may also be degraded, judging from the 

casual comments of visitors complaining that the Dog Mountain site was “really crowded.” The trailhead, 

though it is “grandfathered” in under the CRGNSA Management Plan, would not meet current scenic 

quality standards or RIC standards.

The SR 14 and Dog Mountain congestion and safety study process will explore options to either redesign 

the existing trailhead or relocate the trailhead to another site.

Emerging Hot Spots

During the evaluation of safety and congestion concerns at CRGNSA recreation sites along SR 14, certain 

locations were flagged as areas to watch for future recurring congestion or safety concerns. These sites 

may exceed their capacity a few times a year, but not so often that it is possible to anticipate when it will 

occur. These emerging hot spots may benefit from strategies developed for the sites that currently 

experience recurring congestion and/or safety concerns; therefore, it is helpful to identify these emerging 

hot spots now. These emerging hot spot recreation sites are:

• Ft. Cascades Trailhead

• Bonneville Trailhead

• Lyle Cherry Orchard Trailhead

• Horsethief Butte Trailhead

• Crawford Oaks Trailhead
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 23

TRANSPORTATION CONDITIONS

The following analysis of transportation conditions includes a desktop planning-level examination of the 

corridor based on online databases, field observations, historical traffic data, vehicle crash history, aerial 

imagery, and GIS data.

PHYSICAL FEATURES AND CHARACTERISTICS OF TRANSPORTATION 

FACILITIES

SR 14 traverses five different topographical areas. Most of the corridor is abutted by rock escarpments on 

the north side, and embankments to the Columbia River or railroad tracks on the south side. Between

Washougal and North Bonneville, the route is elevated above the Columbia River, passing through rolling 

and mountainous terrain. From North Bonneville to Stevenson, SR 14 descends to the same elevation as 

the Columbia River. Between Stevenson and Home Valley, the route is again elevated above the river, 

passing primarily through forest land. From Home Valley to Dallesport, the route again descends to travel 

alongside the river. And finally, between Dallesport to the eastern edge of the CRGNSA, the route ascends 

onto a plateau overlooking the river, traversing primarily grasslands. 

SR 14 is a paved, two-lane roadway managed by WSDOT. The pavement width varies throughout the study 

area to accommodate sections with passing lanes and to provide turnouts and turn lanes. Within the study 

area, WSDOT classifies SR 14 as a rural principal arterial, and the highway is part of the National Highway 

System. An important objective of a principal arterial is to connect rural communities and efficiently move 

traffic over long distances. Posted speeds vary from 25 mph within more populated urban areas to 60

mph in less populated areas (see Table 5).

Some of the recreation sites in the SR 14 corridor are accessed via county roads. These county roads are 

generally two-lane rural roads that connect SR 14 and the recreation sites. 

BRIDGES AND CULVERTS

Bridge conditions are determined using the National Bridge Inventory general condition ratings (GCRs). 

The GCRs are used to describe the existing bridge as compared to its as-built condition. The material used 

for construction, as well as the physical condition of the deck, superstructure, and substructure of the 

bridge, are considered in the rating. GCRs are expressed as a numerical rating ranging from 0 (failing 

condition) to 9 (excellent condition), as described in the FHWA Coding Guide.

The bridge condition is classified based on 23 Code of Federal Regulations 490.40911. When the minimum 

GCR of the deck, superstructure, and substructure is 7, 8, or 9, the bridge is classified as “good.” When 

the minimum GCR is either 5 or 6, the bridge is classified as “fair.” If the minimum GCR is 4 or below, the 

bridge is classified as “poor.” A “poor” classification is the new rating term for bridges previously described 

as “structurally deficient,” and these bridges are prioritized for future work as part of WSDOT’s Bridge 

Preservation Program. The GCRs are useful to identify potential issues and needs for planning purposes.

Table 4 liststhe bridges and culverts along the SR 14 corridor in the study area, their location, what feature 

they cross, and when they were built. This table also lists the curb-to-curb width of each bridge, its length,

condition, and who owns and maintains the structure.
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 24

Table 4. Inventory of Study Area Bridges and Culverts

Bridge 

No. Facility MP

Feature 

Crossed

Year 

Built

Curb-toCurb 

Width 

(feet)

Length 

(feet) Condition Owner

0009275B SR 14 18.09 Gibbons Creek 1972 40 65 Good WSDOT

0009275C SR 14 18.77 BNSF Railroad 1972 40 381.9 Fair WSDOT

0000902A SR 14 20.90 Lawton Creek 1925 24 44 Good WSDOT

0017977A SR 14 24.80 Ped X-ing 2011 N/A 12 Good WSDOT

0001444A SR 14 24.92 Half Bridge 1930 30.8 75.1 Poor WSDOT

0001151A SR 14 25.04 Cape Horn Slide 1930 24 479 Fair WSDOT

0017977B SR 14 26.35 Ped X-ing 2011 N/A 12 Good WSDOT

08647320 Doetsch 

Ranch Road

N/A BNSF Railroad 2006 27.9 174.9 Good

WA 

State 

Parks

08647310 Moorage 

Road

N/A Woodard Creek 1998 29.9 25.9 Good

WA 

State 

Parks

0001236A SR 14 34.24 Woodard Creek 1928 24 129.9 Fair WSDOT

000120CE SR 14 37.43 Hamilton Creek 1978 44 270 Fair WSDOT

000064CE SR 14 37.89 Cascade Drive 1978 44 160.1 Fair WSDOT

000034CE SR 14 40.48 BNSF Railroad 1978 44 318.9 Fair WSDOT

0002355A SR 14 43.90 Rock Creek 1938 24 200.1 Fair WSDOT

0012630A SR 14 49.34 Wind River 1985 40.4 663.1 Good WSDOT

0014259A SR 14 56.87 Little White 

Salmon River 1994 36.1 410.1 Good WSDOT

0002042A SR 14 59.03 Gulch 1937 24 214.9 Good WSDOT

0002058A SR 14 59.44 BNSF Railroad 1936 24 126 Fair WSDOT

0001915A SR 14 61.62 BNSF Railroad 1934 24 158.1 Good WSDOT

0008842A SR 14 63.45 White Salmon 

River 1971 40 295.9 Good WSDOT

0015470A SR 14 65.98 Jewett Creek 1999 N/A 20 Good WSDOT

0001727A SR 14 75.76 Klickitat River 1933 24 265.1 Fair WSDOT

0001492A SR 14 86.03 Half Bridge 1931 27.9 42 Fair WSDOT

0001492B SR 14 86.12 Horsethief 

Canyon 1931 24 91.9 Good WSDOT

00200140 SR 14 91.83 Cattle Crossing 1965 36 10 Good WSDOT

Source: National Bridge Inventory 

PAVEMENT CONDITION

The Washington State Pavement Management System (WSPMS) maintains an online database available 

to WSDOT employees known as WebWSPMS. This database is WSDOT’s principal application for 

pavement asset management and includes information on maintenance activities, construction costs, and 

pavement condition as well asimagery. WSDOT evaluates the condition of asphalt and concrete pavement 

on state-managed roadways annually using three indicators: smoothness, surface cracking, and rutting.

These criteria are used to classify pavement conditions into five categories: very good, good, fair, poor,

and very poor. The categories very good, good, and fair indicate pavement conditions that are considered 
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 25

adequate. Pavement in poor condition is deficient and needs repair, while very poor condition indicates 

failure and the need for substantial restoration and possibly reconstruction.

Pavement condition is not currently available for the entire SR 14 corridor throughout the CRGNSA, 

because some sections have not been fully evaluated (WSDOT 2021). Where pavement condition is 

available, it is summarized as follows:

• SR 14, MP 58.92 – MP 58.97: Good

• SR 14, MP 59.03 – MP 59.07: Good

• SR 14, MP 61.62 – MP 61.65: Good

• SR 14, MP 86.03 – MP 86.04: Fair

• SR 14, MP 86.12 – MP 86.13: Fair

Although specific pavement condition ratings are not available for the entire length of the SR 14 corridor, 

conversations with WSDOT staff indicate that significant pavement issues are being addressed as they 

arise. During the field visit in October 2020 for this existing conditions analysis, it was clear that patching 

and spot fixes have been made to SR 14 between Cape Horn and Beacon Rock, which is a known slide 

area. Driver experience during the field visits suggests that the remainder of the pavement in the SR 14 

corridor is generally in good condition, but severe weather events could create new problems if the 

underlying roadway structure is damaged.

POSTED SPEEDS

Posted speeds vary along SR 14. Outside of urban areas, posted speed ranges from 50 mph to 60 mph. As 

SR 14 travels through various communities, the speed reductions vary from 25 mph to 40 mph. Table 5

summarizes the posted speeds for SR 14 through the CRGNSA.

Table 5. SR 14 Posted Speeds in the CRGNSA in the Study Area

Approximate Location

MP 

Begin

MP 

End

Posted Speed 

(mph) County

Washougal East City Limit to SE Jody Road 18.1 21.5 55 Clark

SE Jody Road to Cape Horn Road 21.5 26.5 50 Skamania

Cape Horn Rd to 1st St (west) 26.5 43.9 55 Skamania

1st Street (west) to 1st Street (east) 43.9 44.6 25 Skamania

1st Street (east) to Carson Depot Road 44.6 48.0 50 Skamania

Carson Depot Road to Cook-Underwood Road 48.0 63.2 55 Skamania

Cook-Underwood Road to Charters Road 63.2 65.8 40 Klickitat

Charters Road to Willow Street 65.8 66.15 30 Klickitat

Willow Street to Cedar Street 66.15 66.6 25 Klickitat

Cedar Street to Bingen East City Limit 66.6 67.1 35 Klickitat

Bingen East City Limit to Canyon Road 67.1 75.7 60 Klickitat

Canyon Road to Tacoma Avenue 75.7 76.0 40 Klickitat

Tacoma Avenue to Eighth Street 76.0 76.5 30 Klickitat

Eighth Street to Rowena Gap #2 76.5 76.9 40 Klickitat

Rowena Gap #2 to Mt. Hood Street 76.9 81.4 60 Klickitat

Mt. Hood Street to Schreiner Farms Road 81.4 82.4 55 Klickitat

Schreiner Farms Road to Maryhill 82.4 98 60 Klickitat

Source: State Highway Log, WSDOT
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 26

CLIMBING LANES

Climbing lanes are normally associated with truck traffic but are considered in recreation areas that are 

subject to slow-moving traffic and are often designed independently for each direction of travel. There 

are three climbing lanes on SR 14, each in the eastbound direction:

• MP 27.40 – MP 28.12

• MP 29.31 – MP 29.84

• MP 47.62 – MP 48.01

ROADWAY GEOMETRICS ON SR 14

Existing roadway geometrics were evaluated and compared to current standards. Available horizontal and 

vertical alignment data were reviewed for SR 14 within the study area.

The American Association of State Highway and Transportation Officials (AASHTO) Green Book specifies 

general design principles and controls that determine the overall operational characteristics of the 

roadway such as design speed. AASHTO’s manuals provide guidance for design speed based on facility 

and operating characteristics; however, some judgment is necessary. Design criteria for the SR 14 corridor

in the study area are based on current AASHTO standards as described in the following sections.

Design Criteria

The project team developed design criteria for various roads within the study area. Table 6 lists the design 

criteria developed from AASHTO design manual. The design criteria depend on terrain, area context (i.e., 

urban or rural), and daily traffic volumes. In the study area, SR 14 traverses mostly rural, rolling terrain on 

the west end and level terrain on the east end, and it has projected traffic volumes of over 2,000 vehicles 

per day. These characteristics correlate to a design speed of 50 mph on the west end and 60 mph on the 

east end. 

Table 6. SR 14 Geometric Design Criteria

Design Element

Design Criteria: 

Over 2,000 vehicles/day

Design Control Design Speed

Level 60 mph

Rolling 50 mph

Mountainous 40 mph

Alignment 

Elements

Design Speed: 40 mph 50 mph 60 mph

Maximum Grade

Level 5% 4% 3%

Rolling 6% 5% 4%

Mountainous 8% 7% 6%

Vertical Curvature (K-value) Crest 44 84 151

Sag 64 96 136

Stopping Sight Distance (SSD) (feet) 305 425 570

Radius (feet) 444 758 1,200

Sources: David Evans and Associates, Inc., AASHTO Geometric Design of Highway and Streets 2018 (Green Book)
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 27

Horizontal Alignment

Elements comprising horizontal alignment include curvature, superelevation (i.e., the bank on the road),

and sight distance. These horizontal alignment elements influence traffic operation and safety and relate

directly to the design speed of the corridor. Standards for horizontal curves are defined in terms of curve 

radius, and they vary based on design speed.

The controlling design criteria for the horizontal curves are radius and stopping sight distance (SSD). SSD

for a horizontal curve is evaluated based on the ability to see through the inside of the corner. 

There are 305 existing horizontal curves along SR 14 in the study area. Only one recreation access point 

with overflow parking conditions is found within a horizontal curve of SR 14 with reduced travel speed 

warning: Beacon Rock State Park (40 mph eastbound, 45 mph westbound).

Vertical Alignment

Vertical alignment is a measure of the rate of elevation change of a roadway. The length and steepness of 

grades directly affect the operational characteristics of the roadway. The controlling design limits for 

vertical curves are SSD, vertical curvature (K-value), and maximum grade. Vertical curves can be placed 

into two categories: crest and sag. A crest curve is created at the top of a hill or when the grade decreases.

Conversely, a sag curve occurs at the bottom of a hill or when the grade increases.

According to AASHTO, the maximum allowable grades for a 50 mph design speed are 4 percent for level 

terrain, 5 percent for rolling terrain, and 7 percent for mountainous terrain. The rate of vertical curvature 

is expressed in terms of the K-value. The K-value is defined as a function of the length of the curve 

compared to the algebraic change in grade, which comprises either a sag or a crest vertical curve. For a 

50 mph design speed (rolling terrain), minimum K-values of 84 and 96 are recommended for crest and sag 

vertical curves, respectively.

Of the 292 vertical curves on SR 14 in the study area, 71 fail to meet the 5 percent maximum grade for a 

50 mph design speed (rolling terrain). None of the recreation access points or intersections with overflow 

parking conditions on SR 14 are found on vertical curves that exceed 5 percent grade. 

TRAFFIC CONDITIONS

Due to the COVID-19 pandemic, new traffic volume data were not collected as part of the original existing 

conditions analysis developed in 2020.

1 The traffic analysis relies on historical data available from WSDOT.

Existing annual average daily traffic (AADT) varies from approximately 2,000 to 12,000 vehicles per day 

along SR 14 in the study area. Figure 5 summarizes the historical traffic volumes by mile post from 2015 

to 2019 (WSDOT 2020). The highest traffic volumes are consistently near MP 65, where the Hood River 

Bridge meets SR 14 in White Salmon. The Hood River Bridge is one of the main connections in the region 

between Washington and Oregon. 

1 New traffic counts collected in 2021 (Attachment A) and supplement the findings in the final SR 14 and Dog 

Mountain Congestion and Safety Study
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 28

Figure 5. SR 14 Annual Average Daily Traffic (AADT), 2015–2019

Projected Traffic Volumes

Future traffic volumes on SR 14 are estimated based on historic AADT trends summarized by WSDOT. On 

average, SR 14 traffic volumes are estimated to increase by 60 percent by the year 2040. Figure 6

illustrates the increase relative to the most recent complete five-year historical traffic volumes. The 

highest increase is expected to occur in the White Salmon and Bingen areas near the Hood River Bridge.

SR 14 would expect to see a consistent background growth for the length of the corridor, with higher 

growth in urban areas and between neighboring urban areas.

Figure 6. SR 14 Forecasted Year 2040 Annual Average Daily Traffic (AADT)
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 29

Seasonal Variation

Given that SR 14 is the gateway to many tourist activities, with local and non-local visitors, the corridor 

sees significant seasonal variation. Though transit options do exist, they are very limited, resulting in the 

primary mode of access being the single-occupancy vehicle. Therefore, traffic volumes closely follow the 

tourism seasonality within the study area. 

WSDOT reports the top 200 highest traffic volume hours for the year from permanent traffic recorders

(PTR) around the state. Historic AADT data on SR 14 is available from two PTR stations immediately west 

and east of the study area (at MP 17.7 and MP 100.64). On the west end of the study area, the peak hour, 

or design hourly volume (DHV), is estimated to be 11.5 percent of the AADT, with approximately 66

percent of the traffic heading westbound toward Washougal. The most congested conditions on SR 14 at 

this location are likely to occur in the late afternoon or evening on a weekend (Friday through Sunday) 

between May and September, particularly in June. 

At the east end of the study area, the DHV is estimated to be 14 percent of the AADT, with approximately 

58 percent of the traffic heading westbound toward Lyle. The most congested conditions on SR 14 at this 

location are likely to occur in the early to mid-afternoon on summer weekends (Friday through Sunday) 

between July and August.

As previously mentioned, the landscape consists of mountains, fields, wildflowers, marshlands, wildlife 

refuges, and the Columbia River Gorge itself. Recreational activities include hiking, mountain biking, 

fishing, wind surfing, bird watching, picnicking, and sightseeing, all of which are outdoor activities. It

should be noted that the peak traffic along SR 14 doesn’t always align perfectly with peak use times

at recreational sites. Each recreation site has its own unique features that draw visitors at various

times of the year, as summarized above. For recreation, the peak in the eastern part of the study area

is observed to be spring, mainly due to the endless wildflowers in bloom and active bird watching. 

During the hot and dry summer months, sites in the eastern portion of the study area receive less 

use. Along the western part of the study area, peak activity occurs during the spring and summer 

months due to the various sporting activities and ideal outdoor weather.

Throughout the entire study area, the low season tends to be winter, primarily January and February, due 

to the inclement weather, including heavy rains, high winds, and muddy hiking trails.

Heavy Vehicle Traffic

The Freight and Good Transportation System (FGTS) in Washington State classifies freight corridors by 

modes based on annual freight tonnage moved, including truck, rail, and waterway freight corridors. Each 

modal network is classified into five tiers (T-1 through T-5), each of which has annual tonnage thresholds 

as follows:

• T-1 corridors: more than 10 million tons

• T-2 corridors: 4 million tons to 10 million tons

• T-3 corridors: 300,000 tons to 4 million tons

• T-4 corridors: 100,000 tons to 300,000 tons

• T-5 corridors: at least 20,000 tons in 60 days and less than 100,000 tons per year

According to the FGTS, SR 14 is classified as a T-3 corridor for most of the study area, except for the 

segment between the Bridge of the Gods and Wind River Road, which is classified as a T-2 corridor. Due 
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 30

to the narrow, single lane in each direction, Oversized and/or overweight restrictions apply to the SR 14 

corridor throughout the study area due to its narrow lane widths and limited passing lanes. As such, pilot 

cars are required to assist trucks that are more than 10 feet wide. Given these restrictions, truck traffic is 

minimal along SR 14, as summarized in Table 7 below. 

Table 7. Truck Percentages on SR 14 by Mile Post

Begin MP End MP Annual Tonnage Truck Percentage

17.05 21.77 3,640,000 14.5%

21.77 41.55 3,640,000 14.5%

41.55 47.47 5,010,000 13.6%

47.47 63.48 3,640,000 15.3%

63.48 83.53 3,640,000 15.3%

83.53 101.02 2,460,000 19.3%

Source: 2019 Washington State FGTS Corridor Classifications by State Routes

MULTIMODAL TRANSPORTATION FACILITIES AND USE

BICYCLE

There are no separate bicycle facilities that provide continuous non-highway connections between 

communities in the study area other than SR 14. Because of the prevailing traffic speed and lack of 

shoulders or bike lanes, SR 14 offers only limited appeal to the most avid cyclists. 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 illumination. These conditions make cycling prohibitive for many along SR 14 in the CRGNSA. 

Some recreation opportunities in the study area feature mountain bike trails. Trail users typically drive 

their personal vehicles to access area recreation sites, rather than cycle along SR 14. Some recreational

road cyclists ride a loop within the eastern end of the CRGNSA, traveling east along SR 14 between the 

Hood River Bridge and the Dalles Bridge, and then west along the Historic Columbia River Highway and 

Trail.

Cyclists are required to share the travel lane along most sections of SR 14 travel along the SR 14, or travel 

separated from traffic on the highway shoulders when available. However, existing shoulders are often 

narrow and in places, frequently filled with for overflow or illegal parking. Other corridor features that 

limit cycling along SR 14 include tight curves that block site distance, and guardrail and rock walls that 

limit shoulder widths. 

PEDESTRIAN

Pedestrian activity in the study area is limited to urban areas and within or near recreation sites and 

trailheads along SR 14. There is seasonal pedestrian traffic on approximately 500 feet of SR 14 where the 

Pacific Crest Trail crosses the highway near the Bridge of the Gods. Pedestrians are also prevalent at 

recreation sites where the trailheads or recreational resources are adjacent to SR 14. Pedestrians walking 

from parked vehicles to trailheads share shoulders and roadway where space is limited, sometimes 

crossing SR 14 in hazardous areas with limited sight distance and high vehicular speeds.

TRANSIT

There are multiple public transportation service providers within the Columbia River Gorge area. Each 

provider is a member of Gorge Translink, an alliance of rural transportation providers, human service 
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 31

organizations, and public planning agencies. The objective of Gorge Translink is to enhance connectivity 

and develop a seamless network of transportation services within the Mid-Columbia River Gorge area 

while linking services to the metropolitan cities of Portland, Oregon, and Vancouver, Washington.

Figure 7 maps the various public transportation services in the Columbia River Gorge area. Five 

transportation providers form the Gorge TransLink alliance: Mt Adams Transportation Service (Klickitat 

County), Skamania County Transit, Columbia Area Transit (Hood River County), the Link (Wasco County), 

and Sherman County Community Transit. Public transportation services offered by each provider are 

summarized below, by state.

Figure 7. Map of Public Transportation Services

Map Source: Gorge Translink.

MondayFriday# Daily 

Trips

SaturdaySunday# Daily 

Trips

White Salmon – Bingen - Hood River (OR) X 10 - - $1.00 (1-way)

Goldendale – Wishram – The Dalles X 2 - - $1.00 (1-way)

Skamania County 

Transit

Vancouver – Stevenson – Carson X 2 X 2 $1.00 (1-way)

City Route X 17 - - $1.00 (1-way)

Upper Valley Route X 4 - - $1.00 (1-way)

The Link The Dalles Loop X hourly - - $1.50 (1-way)

Sherman County 

Transit

Moro – Rufus – The Dalles $5 per DAR 

round trip

Columbia Gorge 

Express

Portland – Multnomah Falls – Cascade 

Locks – Hood River X 8 X 6 $10 (1-way)

Typical 

Fare Oregon Washington

Mount Adams Transit 

Service (MATS)

Fixed-Route Bus Service

Dial-A-Ride Only

Columbia Area Transit

Transit Provider Service Area
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 32

Washington Transit Service Providers

Mt. Adams Transportation Service

Mt. Adams Transportation Service (MATS) is a community transportation service provided by Klickitat 

County, largely for seniors. Services provided by MATS include two fixed bus routes (see Figure 7): Dial-ARide (DAR) and Non-Emergent Medical Transportation (NEMT). DAR services are available for seniors and 

people with disabilities and the general public, with priority service to riders with medical and essential 

needs.

MATS operates bus and DAR services Monday through Friday, from about 8 a.m. to 5 p.m. MATS operates 

two daily round trips on the Goldendale-The Dalles route, and ten daily round trips on the White SalmonHood River route. The two fixed-route bus lines are open to the public. There is no transit service on 

holidays or weekends.

Transit fares are $1.00 (each way) on the two bus routes. Fares vary for DAR service depending on trip 

location.

Senior transportation is funded in part by the Area Agency on Aging and Disabilities of Southwest 

Washington and by Klickitat County. Other funding is provided by WSDOT and Federal Transit 

Administration (FTA) grants, and through fare revenue.

Skamania County Transit

Skamania County Transit is a community transportation service provided by Skamania County. Its services 

include one fixed bus route (see Figure 7), DAR, and NEMT. DAR services are available for seniors, people 

with disabilities, and low-income riders.

The fixed-route bus service operates between Carson and the Fisher’s Landing Transit Center in Vancouver 

(with connecting bus service via C-Tran to various Clark County and Portland, Oregon destinations). The 

fixed-route bus line is open to the public and provides two round trips daily. During summer months, 

Skamania County Transit provides shuttle service to a few trailheads along the Gorge within Skamania 

County. With 24 hours’ notice, the transit bus will deviate up to 3/4 mile off Wind River Highway and SR 

14 to accommodate persons with disabilities.

Skamania County Transit operates bus and DAR services Monday through Friday, from about 8 a.m. to 

4:30 p.m. There is no transit service on holidays or weekends.

Transit fares are $1.00 (each way) for bus and DAR trips within Skamania County, and $2.00 for trips 

outside Skamania County. Funding is provided by WSDOT and FTA grants, and through fare revenue.

At present, there is no public transportation service connection between Carson and Bingen, or between 

Bingen and Wishram.

Oregon Transit Service Providers

Hood River County Transportation District

Hood River County Transportation District is a special transportation service district that operates fixed 

bus route and DAR services as Columbia Area Transit (CAT). Services provided by CAT include three fixed 

bus routes (see Figure 7), DAR, and NEMT. DAR services are available for seniors and people with 

disabilities and the general public.
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 33

CAT operates localized service on two local routes: the Hood River City Route and the Upper Valley Route. 

The Hood River City Route operates every 45 minutes between 7 a.m. and 7 p.m., Monday through Friday. 

The Upper Valley Route operates four daily round trips between Hood River city center and Parkdale, 

Oregon, near Oregon Highway 35.

Transit fares are $1.00 (each way) on the local CAT bus routes. Fares vary for DAR service depending on 

trip location, but they are generally $2.00 within Hood River with special pass options.

Funding for local CAT Hood River City Route and Upper Valley Route service is provided by the state and 

FTA grants and local property taxes, and through fare revenue.

Through a special funding agreement with ODOT in 2019, CAT assumed operations of the Columbia Gorge 

Express. Columbia Gorge Express operates eight round trips per day (about every 90 minutes) along the 

I-84 corridor and has stops at Gateway Transit Center, Multnomah Falls, Cascade Locks, and Hood River. 

Some buses continue east to The Dalles, Oregon. Weekday service is generally from 7 a.m. to 6:30 p.m. 

(eight round trips), and weekend service is from 7 a.m. to 4 p.m. (six round trips). From the Gateway 

Transit Center in Portland, the Columbia Gorge Express provides connections to multiple parks and 

trailheads in the Gorge along I-84 and the Historic Columbia River Highway in Oregon.

As shown in Figure 8, Columbia Gorge Express riders are mostly visitors from out of state who use the bus 

primarily for sightseeing and hiking or biking activities in the Gorge.

One-way trip fares for the Columbia River Gorge Express are $10.00. Annual passes are also available.

The Link Public Transit 

The Link Public Transit is a community transportation service provided by Wasco County through the MidColumbia Economic Development District. Services provided by The Link include fixed-route bus (see 

Figure 7), DAR, and NEMT. DAR services are available for seniors and people with disabilities and the 

general public.

The Link operates bus and DAR services in The Dalles urban area Monday through Friday, from about 

6 a.m. to 6 p.m., and on Saturday from about 9 a.m. to 4 p.m. Transit fares are $1.50 (each way) for the 

bus and DAR services.

Sherman County Community Transit

Sherman County Community Transit (also known as Sherman Transit) is a community transportation 

service provided by Sherman County that provides DAR and NEMT services. DAR services are available for 

seniors and people with disabilities and the general public.

Sherman Transit DAR services are offered Monday through Thursday, from about 8 a.m. to 5 p.m. Transit 

fares are $5.00 per round trip.

Sherman County receives ODOT Special Transportation Funds, Statewide Transportation Improvement 

Funds, FTA Capital Investment Grant funds, and state/federal discretionary grant funding to provide 

priority transportation to seniors and disabled persons.
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 34

Figure 8. Travel Characteristics of Columbia Gorge Express Riders

Data Source: Oregon Department of Transportation, 2019.

SAFETY HISTORY AND TRENDS

This section provides an analysis of the most recent five-year crash history within the study area. Crash 

data was obtained from WSDOT’s Crash Data and Reporting Branch. The crash records were provided in 

a GIS shapefile and included all reported crashes from January 1, 2015, to December 31, 2019, within 

Clark, Skamania, and Klickitat counties. The analysis trimmed the data to include crashes within a 500-

foot radius of SR 14 in the study area (from MP 18 to MP 98). In addition to reported crashes, this report 

discusses any unreported crashes during the five years of 2015 to 2019 that were discovered during this 

existing conditions analysis.

2

CRASH HISTORY AND TRENDS

A total of 768 reported crashes occurred in the study area from January 1, 2015, to December 31, 2019. 

Approximately 92 percent of these crashes occurred on SR 14, and 8 percent occurred on an adjacent 

street or intersecting roadway. The analysis summarized the crashes in tabular format and graphed them 

2 Disclaimer: Under 23 U.S. Code § 148 and 23 U.S. Code § 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.

Oregon

14%

Washington

18%

Out of State

68%

Home Residence

68%

20%

15%

10%

5%

2%

Multnomah Falls

Hood River

Portland

Cascade Locks

Rooster Rock

Other

Trip Destination

58%

58%

11%

10%

6%

1%

1%

Sightseeing

Hiking / Cycling

Visiting friends / family

Shopping / dining

Other than Gorge

Work / commute

Medical

Trip Purpose
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 35

to look for trends. The following characteristics were reviewed and are presented in the following 

sections:

a. Number of crashes by severity and year

b. Crash frequency (number) by crash type

c. Crash frequency (number) by driver circumstance (contributing factor)

d. Crash frequency (number) by vehicle type and number of vehicles involved

The analysis included a detailed review of crashes that occurred within 500 feet of any study area 

trailhead. The following discussion also provides a summary of all crashes that resulted in a fatality.

Number of Crashes by Severity and Year

Of the 768 reported crashes, 65 percent (498) resulted in no apparent injury/property damage only, 

18 percent (218) resulted in a minor injury, 3 percent (22) in a serious injury, 1.7 percent (13) resulting in 

a fatality, and 2 percent (17) were unknown. Figure 9 summarizes the crash frequency by severity and 

year. Figure 10 shows each crash along the corridor labeled by severity level. 

Figure 9. Number of Crashes by Severity and Year
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 36

Figure 10. Crashes by Severity
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EXISTING CONDITIONS REPORT 37

Figure 11. Crashes by Severity
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EXISTING CONDITIONS REPORT 38

FATALITIES

Thirteen fatalities occurred within the study 

area from January 1, 2015, to December 31, 

2019, none of which occurred within 500 feet 

of a trailhead. Figure 12 summarizes the crash 

type for crashes that resulted in a fatality. 

Approximately 38 percent of fatal crashes 

were a result of a collision with a fixed object 

such as a guardrail, tree, bank, or ledge, and 

for which all crash reports documented that 

the vehicle was going straight ahead, not 

navigating a turn. 

Each fatality occurred in a unique location 

along the corridor, indicating no geographical hot spots for fatalities. Eleven fatal crashes (85 percent) 

occurred in clear or partly cloudy conditions with dry pavement. Ten fatal crashes (77 percent) occurred 

in the daylight, one occurred at dusk, and the other two in the dark without streetlights. One of the 

fatalities that occurred in the dark without streetlights included a pedestrian. 

Crash Frequency (Number of Crashes) by Crash Type

There are 59 documented crash types in the crash dataset. Figure 13 summarizes crash frequency by crash

type for those types that had more than 20 crashes, equating to a total of 513 crashes. Thus, the remaining

255 crashes appear randomly distributed over 47 other crash types.

Rear-end collisions were the most common throughout the study area, followed by collisions with a 

roadway ditch, earth bank or ledge, and then guardrail. 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. 

Figure 13. Crash Frequency (Number of Crashes) by Common Crash Type

*Includes crash types with at least 20 occurrences

Figure 12: Collision Type of Fatal Crashes
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Crash Frequency (Number of Vehicle-crashes) by Driver Circumstance (Crash Cause)

The crash dataset records 29 documented crash causes. In this section, these data are summarized by 

number of vehicle-crashes, rather than number of crashes, because many crashes involved more than one 

vehicle and therefore, more than one primary contributing factor – one from each driver. Figure 14

summarizes crash frequency (number of vehicles involved in crashes) by crash cause for causes that had 

more than 20 vehicle-crashes (excluding unknown causes), equating to a total of 391 vehicle-crashes. The 

remaining 377 vehicle-crashes were split between 20 other crash causes with 262 crashes with unknown 

crash causes.

The most common contributing factor to crashes throughout the corridor was user-related, where drivers 

exceeded reasonable, safe speeds and the next most common contributing factor was driver inattention. 

More than 60 vehicle-crashes involved drivers under the influence of alcohol. 

Figure 14. Crash Frequency (Number of Vehicle-crashes) by Contributing Factor (Crash Cause)

Includes crash causes with at least 20 occurrences (excluding those recorded as “None”)

Crash Frequency (Number of Crashes) by Vehicle Type and Number of Vehicles Involved

The crash dataset includes 7 documented vehicle types, including “other.” Figure 15 summarizes crash 

frequency by vehicle type and number of vehicles involved. Most crashes involved a passenger car or 

pickup truck, with most crashes involving two vehicles, followed by one-vehicle crashes. There were 33

crashes involving a motorcycle, 20 of which involved no other vehicles, and 13 of which involved another 

vehicle.
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Figure 15. Crashes by Vehicle Type and Number of Vehicles Involved

Crash Density

Figure 16 shows the crash densities along the corridor. As shown, concentrations of crashes tend to be 

within city limits, around sharp curves, or near trailheads and other stopping points along the highway. 

These crash patterns are consistent with a single-lane state highway and are not unusual. 
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Figure 16. Crash Density (1 of 2)
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Figure 16. Crash Density (2 of 2)
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EXISTING CONDITIONS REPORT 43

CRITICAL CRASH RATES

The Highway Safety Manual Part B describes the critical crash rate method as a means of identifying 

locations that warrant further investigation. The critical crash rate is specific to the study area and 

considers average crash rates at comparable sites, traffic volume, and a confidence interval. 

Critical intersection crash rates were calculated for the study intersections. Intersection crash rates are 

calculated based on number of crashes per Million Entering Vehicles (MEV) for the analysis period (in this 

case, five years). Table 8 lists the study intersections that exceeded the critical crash rate for their 

reference populations and summarizes the related crash rates, most notably the SR 14 intersections with 

access to Coyote Wall (Courtney Road) and East Syncline Trailhead (Old Highway 8). Crash diagrams at 

both intersections can be seen in Figure 17. At the Courtney Road intersection, all the crashes on SR 14 

were rear-ends, indicating that a left-turn lane onto Courtney Road to provide refuge for left-turning 

vehicles may improve safety. While there is no singular collision type at the Old Hwy 8 intersection, the 

type of crashes also indicates a left-turn lane on SR 14 may improve safety.

Critical segment crash rates were also calculated for the study area. A segment crash rate is calculated 

based on the total number of vehicles traveling on the road segment during the specified period. This is 

called Vehicle Miles of Travel (VMT). VMT is usually expressed as Million Vehicle Miles (MVM). Table 9

Figure 17. Crash Diagram at Coyote Wall (Top) and Syncline Trailhead (Bottom)
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lists the segments in the study area that exceed the critical crash rate and summarizes the related crash 

rates. Of note is the high crash rate along SR 14 in the Cape Horn segment.

Table 8. SR 14 Intersections Exceeding Critical Crash Rate (2015–2019)

Access to SR 14

5-Year 

Crash Total

Intersection Crash 

Rate (crashes/MEV)

Intersection 

Critical Crash Rate

Access Serves Recreational Site

Bridge of the Gods 8 0.56 0.30

Coyote Wall (Courtney Road) 4 0.45 0.36

Syncline Trail (Old Highway 8) 5 0.57 0.36

Access Serves Public

SE Evergreen Boulevard 5 0.43 0.32

Belle Center Road 4 0.41 0.34

Cook-Underwood Road 4 0.61 0.41

SR 141 7 0.49 0.29

6th Street 3 0.34 0.34

US 197 7 1.53 0.48

Sources: WSDOT Crash Data (2015-2019); David Evans and Associates, Inc.

Table 9. SR 14 Segments Exceeding Critical Crash Rate (2015–2019)

Segment Description

Beg. 

MP

End 

MP

5-Year 

Crash 

Total

Segment Crash 

Rate

(crashes/MVM)

Segment 

Critical Crash 

Rate

West end of CRGNSA 18.00 23.42 66 1.24 1.08

Cape Horn 23.42 26.38 54 1.89 1.16

Doetsch Ranch Road to West 

Bonneville 34.08 37.04 37 1.49 1.19

Wishram 44.13 44.65 11 1.43 1.09

East end of CRGNSA 94.38 98.07 18 1.34 1.31

Sources: WSDOT Crash Data (2015-2019); David Evans and Associates, Inc.

The Cape Horn segment includes both the Cape Horn Viewpoint and the Cape Horn Trailhead. Sixty 

percent of the crashes in this section are a combination of vehicles striking guardrails, driving off the 

highway or overturning. As noted in the SR 14 Corridor Plan (1991), this section of SR 14 is suited for 

continued evaluation for the placement of additional guardrail and shoulder rumble strips. 

The east end of CRGNSA segment had fifty-three percent the of crashes are vehicles striking animals (the 

majority of which are at night) or striking a guardrail or barrier. As noted in the SR 14 Corridor Plan 

(1991), this section of SR 14 is suited for continued evaluation for the placement of shoulder rumble 

strips and wildlife crossing treatments. 
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ENVIRONMENTAL SCAN

The information contained 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 scan is not a detailed environmental investigation; rather, it is a screening exercise is a 

planning-level effort that includesinformation available through desktop studies and does not include site 

information verified through a site visit. If improvement option projects are forwarded from the study 

into project development, an analysis for 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 report may be forwarded into the NEPA process at that time.

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

measures, for natural resources. These protections are most restrictive in areas designated SMA and in 

some cases are slightly less restrictive in areas designated GMA, where some level of human development 

is allowed. In either case, proposed developments in the CRGNSA are required to inventory natural 

resources and prepare plans to protect, manage, and/or mitigate impacts to them in consultation with 

the appropriate state and federal agencies. 

Resources with specific preservation directives in the CRGNSA Management Plan include the following:

• Wetlands, lakes, and ponds

• Streams and riparian habitats

• Priority habitats and sensitive wildlife sites

• Rare plants and natural areas

• In the SMA, forest resources through the review of forest practices

PHYSICAL ENVIRONMENT

GEOLOGIC HAZARDS

The National Earthquake Hazards Reduction Program seismic site classification system provides a measure 

of the potential for strong shaking in an area during an earthquake. This approach categorizes soils into 

six soil site classes (A–F) based on vertical shear wave velocity profile, thickness, and liquefaction 

potential, where earthquake hazard potential generally increases from Class A to Class E. Site class F is

reserved for unusual soil conditions where prediction of earthquake shaking can only be determined by a 

site-specific evaluation (FEMA 2003). Much of the study area from its western terminus to the Dog 

Mountain Trailhead is classified as Site Class D or E, indicating high potential for earthquake shaking and 

liquefaction. East of Dog Mountain Trailhead to the study area’s eastern terminus, and most of the study 

area is classified as Site Class B, denoting relatively lower potential for earthquake shaking and 

liquefactions. Interspersed, isolated areas within this stretch are classified as Site Classes C, D, and E (see 

Figure 18). 

The Washington Geological Survey maintains a clearinghouse of geologic hazard information, including 

mapped landslides and landslide hazard potential. Figure 19 shows the extent of historic landslide

deposits along the length of the study area, along with landslide potential. 

Shallow landslides are those that occur at depths of less than approximately 6 feet to 10 feet. Although 

they are typically minor, their potential speed and long runout can make them dangerous to humans (City 
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EXISTING CONDITIONS REPORT 46

of Seattle 2019). Deep-seated landslides occur at depths of more than 6 feet to 10 feet and are typically 

ancient landslides that have been on the landscape for centuries or longer. Most deep-seated landslides 

are slow, allowing people to escape them without issue. However, some can be dangerous if they go 

undetected and can cause considerable damage to buildings and infrastructure (City of Seattle 2019).

Generally, the potential for earthquake shaking, liquefaction, and landslides appears to be lower in the 

eastern portion of the study area. Projects forwarded from this study will need to account for nearby 

geologic hazard potential in the project design. Depending on the nature of a proposed project, 

geotechnical investigations may be required to support project design and construction. 

STREAMS, RIPARIAN HABITATS, AND WETLANDS

The abundance of streams and other aquatic habitats is one of the defining traits of the CRGNSA, from 

both the perspective of scenic quality and the perspective of natural resources. The CRGNSA Management 

Plan policies emphasize protecting and enhancing aquatic and riparian systems. This includes expanding 

stream buffers, requiring vegetation enhancement, protecting cold water refuge habitats, and other 

approaches. Activities that impact streams, riparian habitats, wetlands (including ponds and lakes), and 

their buffers must be avoided or offset through mitigation and restoration to the greatest extent 

practicable.

Streams and Riparian Areas

Healthy functioning stream ecosystems provide society with many benefits, including water purification, 

flood control, nutrient recycling, waste decomposition, fisheries, recreation, and aesthetics (USGS 2020). 

The riparian areas associated with streams and other waterbodies throughout the study area are a key 

contributing element to the health of stream ecosystems. Riparian areas represent the transition from 

aquatic to terrestrial ecosystems and provide numerous benefits including energy flow, nutrient cycling, 

water cycling, hydrologic function, and refuge, foraging, and breeding habitat for a multitude of wildlife 

species (USDA NRCS 1996). Riparian areas in the study area are commonly home to species such as turtles, 

neotropical bird species, and raptors such as the bald eagle (CRGC and USFS 2020).

The study area parallels the Columbia River throughout its extent. Large tributary streams located within 

the study area include the White Salmon River, Klickitat River, Wind River, and Little White Salmon River. 

Numerous other tributary streams of varying sizes, together with their associated riparian areas, are 

located throughout the extent of the study area (see Figure 20). A total of approximately 34.49 miles of 

streams and their associated riparian areas intersect with the study area. The CRGNSA Management Plan 

stipulates that proposed uses adjacent to streams, ponds, and lakes must preserve an undisturbed buffer 

zone that is wide enough to protect both the aquatic and riparian areas. Buffer zones are based on the 

characteristics of the individual stream (i.e., perennial or intermittent) and the vegetation community 

type (i.e., forest, shrub, or herbaceous). For projects forwarded from this study, field surveys would be 

required to determine potential impacts to any streams and associated riparian areas. Coordination with 

the appropriate state or federal wildlife agency (Washington Department of Fish and Wildlife [WDFW], 

United States Fish and Wildlife Service [USFWS], and/or USFS) would be required to determine the 

appropriate width for proposed protective buffers and to develop plans for protection or mitigation as 

necessary. For any unavoidable in-stream impacts, coordination with WDFW, the U.S. Army Corps of 

Engineers (USACE), and other state and federal agencies, as applicable, would be required.
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Wetlands

Wetlands are abundant throughout the CRGNSA, providing a multitude of ecological, economic, and social 

benefits. They provide habitat for fish, wildlife, and plants, many of which have commercial or recreational 

value. Wetlands also recharge groundwater, reduce flooding, provide clean drinking water, offer food and 

fiber, and support cultural and recreational activities (USFWS 2020a).

The USFWS National Wetlands Inventory (USFWS 2020a) identifies approximately 1,616.3 acres of 

wetlands within the study area. The extent of mapped wetlands within and adjacent to the study area is 

shown in Figure 20. For any projects that are forwarded as a result of this study, on-site wetland

delineations will need to be conducted according to the Level 2 Routine On-Site Method (USACE 1987; 

USACE 2010) in order to verify the presence of wetlands and identify any potential impacts. 

The CRGNSA Management Plan stipulates that 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. Projects forwarded from 

this study would need to assess the potential for wetland impacts and provide sufficient buffer zones to 

avoid impacts. Project proposals that could affect wetlands would require coordination with the 

appropriate agencies that regulate wetland impacts (USACE, Washington Department of Ecology) and 

impacts to wildlife habitat (USFWS, WDFW, and USFS and/or National Marine Fisheries Service [NMFS] as 

applicable) to determine appropriate impact mitigation or compensation approaches. 

FLOODPLAINS AND FLOODWAYS

Floodplains provide flood risk reduction benefits by slowing runoff and storing floodwater. They also 

provide other economic, social, and environmental benefits that are often overlooked when local land 

use decisions are made. Floodplains frequently contain wetlands and other important ecological areas 

that directly affect the quality of the local environment. Some of the benefits of floodplains to a 

functioning natural system are:

• Fish and wildlife habitat protection

• Natural flood and erosion control

• Surface water quality maintenance

• Groundwater recharge

• Biological productivity

• Higher quality recreational opportunities (fishing, bird watching, boating, etc.) (FEMA 2020)

Figure 21 shows the extent of floodplains associated with the Columbia River and its tributaries along the 

extent of the study area. Approximately 1,822.7 acres of the study area are located within the Special 

Flood Hazard Area (SFHA). No regulatory floodways are identified within the boundaries of the study area. 

The SFHA throughout the study area is primarily characterized as areas subject to inundation by the 1-

percent-annual-chance flood event (i.e., the 100-year floodplain) with base flood elevations 

undetermined. A small portion of the study area near the western terminus is characterized as areas 

subject to inundation by the 0.2-percent-annual-chance flood event (i.e., the 500-year floodplain) (FEMA 

2020). The study area encroaches on the 100-year floodplain in numerous, interspersed locations 

throughout its extent from the western terminus to Horsethief Lake. The study area does not encroach 

into the floodplain between Horsethief Lake and its eastern terminus. 
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Most counties and major cities have floodplain regulations within their local codes, as do all the 

jurisdictions within the study area. Typically, these regulations are consistent with the Federal Emergency 

Management Agency (FEMA) Model Floodplain Code. Under FEMA regulations (Executive Order [EO] 

11988, Floodplain Management, 1977), no alteration of flood zones shall result in an increase in the base 

flood elevation (BFE) or an increase in the velocity of floodwaters without FEMA approval. The BFE is 

defined in the FEMA regulations as “the area subject to flooding by the flood or tide having a one percent 

chance of being exceeded in any given year,” which is also referred to as the 100-year floodplain. EO 

11988 directs all federal agencies to refrain from conducting, supporting, or allowing an action in a 

floodplain unless it is the only practicable alternative. U.S. Department of Transportation Order 5650.2, 

Floodplain Management and Protection, describes policies and procedures for “ensuring that proper 

consideration is given to avoidance and mitigation of adverse floodplain impacts in agency actions, 

planning programs and budget requests.” Projects forwarded from this study would need to determine 

during the planning phase whether development would take place within the 100-year floodplain. If it is 

not possible to avoid development within the 100-year floodplain, projects would be required to comply 

with floodplain regulations of the specific jurisdiction or jurisdictions in which the project is located. 
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EXISTING CONDITIONS REPORT 49

Figure 18. Seismogenic Hazards in the Study Area (1 of 2)
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EXISTING CONDITIONS REPORT 50

Figure 18. Seismogenic Hazards in the Study Area (2 of 2)
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EXISTING CONDITIONS REPORT 51

Figure 19. Landslide Hazards in the Study Area (1 of 2)
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EXISTING CONDITIONS REPORT 52

Figure 19. Landslide Hazards in the Study Area (2 of 2)
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EXISTING CONDITIONS REPORT 53

Figure 20. Wetlands and Waters in the Study Area (1 of 2)
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EXISTING CONDITIONS REPORT 54

Figure 20. Wetlands and Waters in the Study Area (2 of 2)
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EXISTING CONDITIONS REPORT 55

Figure 21. FEMA Floodplains and Floodways in the Study Area (1 of 2)
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EXISTING CONDITIONS REPORT 56

Figure 21. FEMA Floodplains and Floodways in the Study Area (2 of 2)
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EXISTING CONDITIONS REPORT 57

BIOLOGICAL RESOURCES

VEGETATION (RARE PLANTS AND NATURAL AREAS)

Vegetated habitats along the extent of the study area are highly diverse, ranging from old growth 

coniferous forests at the western end of the study area to prairie and steppe at the eastern end of the 

study area. The varied landscape provides habitat for numerous species of rare plants, many of which are 

endemic to the CRGNSA. The CRGNSA Management Plan policies require new development to ensure that 

rare plants are not adversely affected. 

Several ecologically and scientifically significant areas, designated in the CRGNSA Management Plan as 

Natural Areas, have been identified as outstanding examples of the diversity of the landscape and 

ecosystems throughout the CRGNSA. The CRGNSA Management Plan requires these areas to be 

protected from adverse effects. 

Rare Plants

An initial assessment of rare plants potentially occurring within the study area was performed using the 

WDFW Priority Habitats and Species (PHS) web mapping tool (WDFW 2020) and the USFS Sensitive Species 

List for the CRGNSA (USFS, no date). This information was cross-checked with a GIS-based analysis using 

data provided by the Washington Natural Heritage Program (WNHP) detailing rare plants documented 

within or adjacent to the study area. Rare plants potentially occurring within the study area, along with 

their typical habitats, are listed below in Table 10. The CRGNSA Management Plan requires site plans to 

be prepared and reviewed by the appropriate state and federal government agencies for any proposed 

use within 1,000 feet of a rare plant site. For projects forwarded from this study, consultation with WDFW 

and USFS would be required to determine any potential impacts on rare plants and develop appropriate 

avoidance and mitigation strategies.

Table 10. Rare Plants Potentially Occurring in the Study Area

Species Common Name

State 

Status Habitat

Leptosiphon 

bolanderi

Baker’s linanthus S Found in dry open areas in the eastern Columbia River 

Gorge.

Penstemon 

barrettiae

Barrett’s 

beardtongue

T Grows on rocky substrates of basaltic origin with little 

soil development, including crevices in basalt cliffs, 

ledges of rock outcrops, open talus, and occasionally 

well-drained roadsides. Occurs at elevations below 

3,000 feet.

Montia diffusa Branching montia S Found in upturned root disturbances within forested 

areas of the Cascade Mountains.

Leptogium 

burnetiae

Burnet’s skin lichen E Found in mid-elevation moist western hemlock stands, 

old-growth Douglas-fir, moist Pacific silver fir or noble 

fir forests.

Rorippa columbiae Columbia 

yellowcress

T Grows in moist to wet, sandy habitat types at 

elevations from 700 feet to 6,100 feet.

Githopsis 

specularioides

Common bluecup S Grows in dry, open areas at lower elevations such as 

thin soils over bedrock outcrops, grassy balds, talus 

slopes, and gravelly prairies. 
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Species Common Name

State 

Status Habitat

Hackelia diffusa var. 

diffusa

Diffuse stickseed T Found in rocky places in sagebrush-steppe and 

ponderosa pine forests, on cliffs, and on talus slopes in 

the Columbia River Gorge.

Collinsia sparsiflora 

var. sparsiflora

Few-flower blueeyed MaryT Found on low-elevation dry slopes with sparse 

vegetation on the east side of the Cascade Mountains.

Erigeron oreganus Gorge daisy T Found in wet environments on basalt outcroppings and 

moist, shady basalt cliffs and ledges, often beneath 

overhangs or near waterfalls. Occurs at elevations 

between 50 feet and 1,700 feet.

Aphyllon 

californicum ssp. 

grayanum

Gray’s broomrape E Parasitic flowering plant typically found in vernally 

inundated sites, which are favored by its host plant, 

the western mountain aster (Symphyotrichum 

spathulatum) later in the year.

Corispermum 

villosum

Hairy bugseed S Found on inland dunes or other sandy sites in the 

eastern Columbia River Gorge.

Packera bolanderi 

var. harfordii

Harford’s ragwort S Found on coastal bluffs and beaches and moist 

woodlands west of the Cascade Mountains.

Navarretia tagetina Marigold navarretia T Found in open, rocky areas, scablands, vernal pools, 

grasslands, and stony washes with standing water in 

spring, becoming dry in summer. Occurs at eastern end 

of Columbia River Gorge.

Isoetes nuttallii Nuttall’s quillwort S Found in seasonally wet ground, seepages, temporary 

streams, and mud near vernal pools at elevations of 

200 feet to 345 feet.

Bolandra oregana Oregon bolandra T Found in moist, wooded, rocky, low-elevation sites in 

deep shade, such as near streams or on basalt cliffs 

near waterfalls. 

Eryngium 

petiolatum

Oregon coyotethistleT Obligate wetland species of wet prairies, swales, 

shallow ditches, and low ground, especially in places 

submerged in spring and dry in summer. 

Sullivantia oregana Oregon sullivantia E Endemic to the western Columbia River Gorge. Found 

in dense, damp coniferous forest on moist basalt cliffs, 

seepy rock faces, and spray zones of waterfalls. 

Microsites remain wet to moist much of the year.

Lomatium 

tamanitchii

Ribseed biscuitroot S Found on open slopes and valleys, typically in clay-rich, 

volcanic ash-derived soils at low elevations. Occurs at 

the eastern end of the Columbia River Gorge. Endemic 

to Klickitat County.

Scribneria bolanderi Scribner’s grass T Found in dry, sandy to rocky soils, seepages, vernal 

pools, and sometimes along roadsides, at elevations 

from 1,640 feet to 9,800 feet.

Plectritis 

brachystemon

Shortspur seablush S Found on coastal bluffs, lowland prairies, and balds at 

low elevations.

Trillium albidum 

ssp. parviflorum

Small-flowered 

trillium

S Found in moist lowland forests, oak-ash woodlands, 

and thickets in the western Columbia River Gorge.

Lomatium 

laevigatum

Smooth desertparsleyT Found on ledges and crevices of basalt cliffs along the 

Columbia River and adjacent rocky slopes of sagebrush 

steppe. Adapted to dry, rocky habitats, where it faces a 

minimal amount of competition.
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Species Common Name

State 

Status Habitat

Actaea elata var. 

elata

Tall bugbane S Found in moist, shady, low elevation forested habitat 

characterized by Douglas-fir, bigleaf maple (Acer 

macrophyllum), western redcedar (Thuja plicata), and 

red alder (Alnus rubra). 

Cirsium 

remotifolium var. 

remotifolium

Weak thistle S Found in meadows, along stream banks, in open 

forest, and on brushy slopes, in low to mid-elevation 

areas.

Spiranthes porrifolia Western ladies’-

tresses

S Found in wet meadows, bogs, streams, and seepage 

slopes at elevations of 10 feet to 6,800 feet.

Meconella oregana White meconella E Found primarily in open grassland; sometimes within a 

mosaic of forest and grassland on gradual to almost 

100% slopes. Habitats are wet to moist in spring, but 

dry by early summer.

Penstemon wilcoxii Wilcox’s 

beardtongue

T Grows in a range of habitats, including shrubby areas, 

forested slopes, moist soil, and open rocky sites. 

Leymus flavescens Yellow wildrye S Found on coarse textured soils, primarily in the 

Columbia Plateau. May occur in sand dune ecosystems 

in the eastern Columbia River Gorge.

E = Endangered

T = Threatened

S = Sensitive

Sources: WNHP 2020; WDFW 2020; USFS, no date; Camp and Gamon 2011. 

Natural Areas

In the CRGNSA there are 45 designated Natural Areas, which are ecologically and scientifically significant 

areas that are representative of the diverse native ecosystems of the Columbia River Gorge. There are 21

Natural Areas located on the Washington side of the CRGNSA. Several of these are located partially within 

or adjacent to the study area, as shown in Table 11. Figure 22 identifies the Natural Areas that are located 

within the study area. The CRGNSA Management Plan stipulates that Natural Areas must be protected 

from adverse effects. Uses that would adversely affect native plant communities and rare plants are 

prohibited in Natural Areas. Projects forwarded from this study would need to address any potential 

impacts on Natural Areas, including consultation with WDFW and USFS biologists.

Table 11. Natural Areas Within or Adjacent to the Study Area

Natural Area Acres Vegetation/Terrain

Within/Adjacent 

to Study Area

Beacon Rock State 

Park

35 Douglas-fir/red alder forest with open areas; rare plants Yes

Burdoin Mountain 60 Old-growth Douglas-fir with scattered ponderosa pine No

Cape Horn 55 Topographic bench, basalt cliffs and slopes; rare plants Yes

Columbia Falls 765 Basalt cliffs, valleys and ridges with 120-foot to 175-foot 

waterfalls; old-growth Douglas-fir, grand fir, and red 

cedar; rare plants

No

Columbia Hills 2,600 Ridge with moist draws, bunch grass prairies, scablands; 

rare plants

No

Columbia Tunnels 15 High-quality oak woodland with native grasses Yes

Dog Mountain 2,700 East-west transition; fir and hemlock, oak, and 

ponderosa pine forests, with talus slopes and grasslands

Yes
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Natural Area Acres Vegetation/Terrain

Within/Adjacent 

to Study Area

East Fork of Major 

Creek

640 Intact, original forest in eastern Columbia River Gorge; 

Douglas-fir, ponderosa pine, grand fir, scattered oldgrowth trees

No

Hamilton Creek 1,280 Old-growth patches of Douglas-fir and riparian 

communities

No

Horsethief Ponds 280 Mound/swale topography with ponds; rare plants No

Little Wind River 1,150 Drainage basin, including riparian areas and steep 

slopes; Douglas-fir and western hemlock forest with old 

growth stands and rare plants

No

Lower Klickitat River 

Canyon

145 Oak woodland with native grasses; rare plants No

Lower Major and

Catherine Creeks

3,000 Oregon white oak/ponderosa pine forests, with 

grassland and riparian areas; rare plants

Yes

Miller Island 130 Sand dunes and basalt cliffs; rare plants No

Mosley Lakes 110 Wetlands No

Pierce Island 200 One of the least-disturbed Columbia River islands; 

cottonwood-Oregon ash and shoreline plant 

communities; rare plants

No

Prindle Mountain 130 Douglas-fir forests, meadows; rare plants No

Table Mountain/ 

Greenleaf Basin

2,300 Bluffs, meadows, wetlands, old-growth forest; rare 

plants

No

Underwood 

Mountain

120 Douglas-fir forest with rare plants No

West Fork of 

Sasquatch Creek

430 Remnant old-growth stand of Douglas-fir; rare plants No

Wind Mountain 290 Intact, original Douglas-fir and Oregon white oak forests Yes

Sources: CRGC and USFS 2016; WNHP 2020.

FISH AND WILDLIFE (PRIORITY HABITATS AND SENSITIVE WILDLIFE SITES )

The CRGNSA Management Plan emphasizes wildlife habitat protection by requiring projects to ensure 

that new uses do not adversely affect Priority Habitats or sensitive wildlife sites. Priority Habitats are 

important for providing nesting, roosting, denning, foraging, and other life cycle needs for wildlife species 

in the CRGNSA. In many cases, they are vulnerable to alteration or limited in availability on the landscape. 

Sensitive wildlife sites are identified by wildlife management agencies on a site-specific basis, based on 

their known use by sensitive wildlife species. In addition to avoiding adverse impacts to these resources, 

proposed projects are directed by the CRGNSA Management Plan to enhance wildlife habitat that has 

been altered or destroyed by past uses.

Priority Habitats

USFS and state wildlife agencies identify Priority Habitats in the CRGNSA as part of State Wildlife Action 

Plan efforts and revise them from time to time. Table 12 lists Priority Habitats in the CRGNSA and whether 

they are present within or adjacent to the study area, along with the respective defining characteristics of 

each. Figure 22 showsthe location of mapped priority habitats within the study area. Some priority habitat 

types, for example, snags and logs and old growth forest, are not specifically mapped, because these 

habitat types could be present in many of the forested areas adjoining the study area and would require 

more detailed field verification to reliably identify. Projects forwarded from this study would be required 

to identify any Priority Habitats within the project vicinity via field survey and maintain adequate buffer 
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EXISTING CONDITIONS REPORT 61

zones in order to protect them. Any proposed development within 1,000 feet of a Priority Habitat would 

need to be evaluated for adverse effects in coordination with WDFW and USFS, as applicable. 

Table 12. Priority Habitats in the CRGNSA

Priority Habitat Criteria

Within/Adjacent 

to Study Area

Aspen stands High fish and wildlife species diversity, limited availability, 

high vulnerability to habitat alteration.

No

Caves Significant wildlife breeding habitat, limited availability, 

dependent species.

No

Old-growth forest High fish and wildlife density, species diversity, breeding 

habitat, seasonal ranges, and limited and declining 

availability, high vulnerability.

Yes

Oregon white oak 

woodlands

Comparatively high fish and wildlife density, species 

diversity, declining availability, high vulnerability. 

Yes

Prairies and steppe Comparatively high fish and wildlife density, species 

diversity, important breeding habitat, declining and limited 

availability, high vulnerability.

No

Riparian High fish and wildlife density, species diversity, breeding 

habitat, movement corridor, high vulnerability, dependent 

species.

Yes

Wetlands High species density, high species diversity, important 

breeding habitat and seasonal ranges, limited availability, 

high vulnerability.

Yes

Snags and logs High fish and wildlife density, species diversity, limited 

availability, high vulnerability, dependent species.

Yes

Talus Limited availability, unique and dependent species, high 

vulnerability.

Yes

Cliffs Significant breeding habitat, limited availability, dependent 

species.

Yes

Dunes Unique species habitat, limited availability, high 

vulnerability, dependent species.

Yes

Winter range Provides important deer and elk wintering habitat. Yes

Sources: CRGC and USFS 2020

Sensitive Wildlife Sites

The generic term “sensitive wildlife sites” is used in the CRGNSA Management Plan to refer to sites that 

are 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 (limited to great blue heron, osprey, golden eagle, and prairie falcon) 

(CRGC and USFS 2016; CRGC and USFS 2020). The CRGNSA Management Plan requires site-specific plans 

for development proposed near sensitive wildlife sites. Buffer zones must be established, which are 

determined on a case-by-case basis depending on the biology of the affected species, the characteristics 

of the project site, and the proposed use. If proposed new development could alter habitat, resource 

rehabilitation and mitigation are required to reduce and offset effects. For projects forwarded as a result 

of this study, consultation with WDFW would be required to determine whether a proposed project is 

located within 1,000 feet of a sensitive wildlife site. 
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Figure 22. Natural Areas and Priority Habitats in the Study Area (1 of 2)
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Figure 22. Natural Areas and Priority Habitats in Study Area (2 of 2)
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THREATENED AND ENDANGERED SPECIES

A query of federally listed threatened, endangered and sensitive species and their habitats regulated by 

the USFWS was conducted using the USFWS Information for Planning and Consultation (IPaC) database 

(USFWS 2020b). The results of the IPaC query includes species protected under the federal Endangered 

Species Act (ESA), Migratory Bird Treaty Act (MBTA), and the Bald and Golden Eagle Protection Act 

(BGEPA). The IPaC system also identifies Critical Habitat, if present. The IPaC query was supplemented 

with desktop research using the USFWS Critical Habitat for Threatened and Endangered Species online 

GIS tool (USFWS 2020c). Species identified by the IPaC database have the potential to occur in the area; 

however, their presence is dependent on many factors, such as suitable habitat. Therefore, the IPaC query 

results were cross-checked with the USFS sensitive species list for the CRGNSA to determine which species 

have the potential to be present in the study area (USFS, no date). 

To determine fish species distribution and the potential presence of any federally protected anadromous 

fish species and/or habitat regulated by NMFS within the study area vicinity, a query was conducted using 

the StreamNet fish data mapper (StreamNet Mapper 2020) and the NMFS Protected Resources App online 

GIS viewer (NMFS 2020). Table 13 shows the federally listed threatened, endangered, and sensitive 

species identified as potentially occurring in or near the study area.

Table 13. Federally Listed Threatened and Endangered Species Potentially Occurring in the Study 

Area

Species Common Name

Federal 

Status

USFWSNMFS

Critical 

Habitat Likelihood of Occurrence

Birds

Strix 

occidentalis 

caurina

Northern spotted 

owl

LT • Yes Generally found in closed-canopy 

mature to old-growth forests 

(USFWS 2020d). Potentially 

present.

Fish

Salvelinus 

confluentus

bull trout LT • Yes Assumed present.

Oncorhynchus 

kisutch

Coho salmon, 

Lower Columbia 

River Evolutionary 

Significant Unit 

(ESU)

LT • Yes Assumed present.

Oncorhynchus 

keta

Chum salmon, 

Columbia River 

ESU 

LT • Yes Assumed present.

Oncorhynchus 

tshawytscha

Chinook salmon, 

Lower Columbia 

River ESU

LT • Yes Assumed present.

Oncorhynchus 

tshawytscha

Chinook salmon, 

Upper Columbia 

River spring-run 

ESU

LE • Yes Assumed present in Columbia River.
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Species Common Name

Federal 

Status

USFWSNMFS

Critical 

Habitat Likelihood of Occurrence

Oncorhynchus 

tshawytscha

Chinook salmon, 

Snake River fallrun ESU

LE • Yes Assumed present in Columbia River.

Oncorhynchus 

nerka

Sockeye salmon, 

Snake River ESU

LE • Yes Assumed present in Columbia River.

Oncorhynchus 

mykiss

Steelhead, Lower 

Columbia River 

Distinct 

Population 

Segment (DPS)

LT • Yes Assumed present west of White 

Salmon River.

Oncorhynchus 

mykiss

Steelhead, Middle 

Columbia River 

DPS

LT • Yes Assumed present in Columbia and 

White Salmon rivers.

Oncorhynchus 

mykiss

Steelhead, Upper 

Columbia River 

DPS

LT • Yes Assumed present in Columbia River.

Oncorhynchus 

mykiss

Steelhead, Snake 

River Basin DPS

LT • Yes Assumed present in Columbia River.

Thaleichthys 

pacificus

Eulachon LT • Yes Potentially present in Columbia 

River below Bonneville Dam.

LE = Listed Endangered

LT = Listed Threatened

Sources: USFWS 2020a; USFWS 2020b; NMFS 2020; StreamNet Mapper 2020.

Designated critical habitat for six federally listed species regulated by NMFS, including six Evolutionary 

Significant Units (ESUs) of listed salmon and four Distinct Population Segments (DPSs) of listed steelhead, 

is located within or adjacent to the study area throughout its extent (NMFS 2020). Designated critical 

habitat for USFWS-regulated, federally threatened bull trout is located in the Columbia, White Salmon, 

and Klickitat Rivers (USFWS 2020b). Designated critical habitat for USFWS-regulated federally threatened 

northern spotted owl is present in the western portion of the study area and is concentrated in the portion 

of the study area between Beacon Rock State Park and the Dog Mountain Trailhead (USFWS 2020b). See 

Figure 23 for the location of critical habitat for ESA listed species in the vicinity of the study area. 

To determine potential direct impacts to ESA-listed fish species from projects forwarded under this study, 

it will be necessary to review the species potentially present within a given stream and describe on-site 

conditions for any in-stream construction work. For projects that would not have potential direct impacts 

to stream habitat but could generate additional stormwater runoff, potential impacts from stormwater 

runoff would need to be evaluated in coordination with WDFW. Projects that could have impacts in or 

adjacent to forested habitat would need to ensure that terrestrial fieldwork is conducted to determine 

the presence of suitable northern spotted owl habitat in order to satisfy ESA compliance requirements.

Direct impacts to listed fish species and their critical habitat in the Columbia River would not be expected 

as a result of projects forwarded from this study. However, potential impacts from stormwater runoff 

from the study area would need to be evaluated on a project-by-project basis in coordination with WDFW. 
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OTHER SPECIES OF CONCERN

In addition to the species listed under the federal ESA that are referenced in the section above, proposed 

projects and management activities in the CRGNSA must consider several other species that are protected 

by state or federal law or by agency management policy. These include species identified as sensitive by 

USFS and WDFW, what are called USFS Survey and Manage species (on National Forest lands only), and 

species protected under the BGEPA and MBTA. 

USFS and WDFW Sensitive Wildlife Species

USFS maintains a list of sensitive species that is specific to National Forest lands within the CRGNSA. The 

list includes federally listed species (including but not limited to those listed in Table 13 above) as well as

USFS Region 6 sensitive species with potential to occur on National Forest lands within the CRNGSA (see 

Table 14 below). 

Because of direction included in the CRGNSA Management Plan, USFS is also required to manage for 

WDFW sensitive wildlife species on National Forest lands. These include some additional sensitive species

identified by WDFW that are not already included on the USFS Sensitive Species List. Projects must 

consider potential impacts to WDFW sensitive species irrespective of whether a project is located on 

National Forest land. However, USFS sensitive species that are not otherwise considered sensitive by 

WDFW must be considered when only projects are proposed on National Forest land. 

A GIS-based query of WNHP PHS data was used to identify species included on the USFS and/or WDFW 

sensitive species lists for the CRGNSA that have been documented within or adjacent to the study area

(WNHP 2020). These species could have potential to be affected by projects forwarded from this study.

Sensitive species that could potentially occur within the study area are detailed in Table 14 below. Projects 

forwarded from this study that are proposed to take place on National Forest lands would require 

consultation with USFS and WDFW to identify and address potential impacts to these species and possibly 

others, in addition to any necessary impact avoidance and/or mitigation actions. In portions of the study 

area that are not located on National Forest lands, development activities would still need to consider 

potential impacts to species included on the WDFW sensitive species list as well as the federally listed 

species detailed in Table 13 above. 

Table 14. Sensitive Species Potentially Occurring within the Study Area

Species

Common 

Name

Federal 

Status

State 

Status

USFS 

Sensitive Habitat

Birds

American 

white 

pelican

T Yes Nests in large colonies on islands within 

shallow water and marshes free of 

human disturbance and mammalian 

predators. Post-breeders sometimes 

seen in the Columbia River (Klickitat 

Delta, below The Dalles Dam).

Pelecanus 

erythrorhynchos

Bald eagle SOC Yes Found near shoreline (generally within 

1 mile of large water bodies) with large 

trees and prey base of primarily fish. 

Diet also includes some waterfowl, 

turtles, and carrion.
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Species

Common 

Name

Federal 

Status

State 

Status

USFS 

Sensitive Habitat

Haliaeetus 

leucocephalus

Great blue 

heron

Monitored Found in a variety of wetland habitats 

including marshes, flooded meadows, 

lake edges, or shorelines. Breeds within 

the study area.

Ardea Herodias Golden eagle C Yes Uses a variety of habitats in open 

country/forests; often nests on steep 

cliffs or large trees.

Aquila 

chrysaetos

Lewis’

woodpecker

C Yes Found in open pine/oak woodland, 

conifer forests, and riparian woodland 

in eastern portions of the CRGNSA. 

Regionally displays seasonal migration 

to lower elevations during nonbreeding season, although in the 

CRGNSA, it is often resident year-round 

in same location. Nests in cavities of 

trees and snags. 

Melanerpes 

Lewis

Purple martin C Yes Found in the western portion of the 

study area eastward to Bingen. Nests in 

cavities and crevices, often near water. 

Forages over open water/fields/ forest 

canopy. 

Progne subis Western 

grebe

C Yes Found in open lakes and marshes with 

rushes and tules. Winters in coastal 

estuaries/bays.

Aechmophorus occidentalis

Lampetra 

tridentata

Pacific 

lamprey

SOC Yes Anadromous. Documented in the 

Columbia River. Information on current 

distribution and abundance is 

developing.

Reptiles and Amphibians

Actinemys 

marmorata

Western 

pond turtle

SOC E Yes Found near streams, large rivers, slow 

sloughs, and quiet waters with nesting 

habitat (open meadow) within 1⁄2 mile. 

Occurs at elevations below 3,000 feet. 

Plethodon 

larselli

Larch 

Mountain 

salamander

S Yes Largely found in moss-covered talus 

slopes or other rocky substrate, at low

to middle elevations. 

Anaxyrus 

boreas

Western toad C Yes Most common near marshes and small 

lakes (breeding sites in midspring); can 

travel readily overland and be found 

along streams/seeps. Known to occur

near White Salmon, Major, and 

Catherine creeks.
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Species

Common 

Name

Federal 

Status

State 

Status

USFS 

Sensitive Habitat

Contia tenuis Sharp-tailed 

snake

C Yes Found on rocky slopes, often in open 

pine/oak woodland with prey species 

of small slugs present. Often in moist 

riparian area east of the Cascade

Mountains.

Sceloporus 

graciosus

Sagebrush 

lizard

C Yes Found on eastern end of Columbia 

River Gorge. Associated with 

sagebrush, but also conifer habitats.

Mammals

Sciurus griseus Western gray 

squirrel

SOC T Yes Associated with open mixed 

oak/conifer woodland, typically within 

1⁄2 mile of water source. The CRGNSA is 

in the northernmost portion of its 

range, with core habitat in Klickitat 

County.

E = Endangered

T = Threatened

S = Sensitive

C = Candidate

SOC = Species of Concern

Sources: USFS, no date; WNHP 2020.

USFS Northwest Forest Plan Survey and Manage Species

In addition to the sensitive species list discussed above, the USFS maintains a list of “Survey and Manage” 

species identified by the Northwest Forest Plan. These species include rare and little-known species 

thought to be associated with late-successional and old growth forests. The Northwest Forest Plan 

prescribes a set of management standards and guidelines requiring surveys before initiating management 

actions and limits the actions that can be taken if these species found. These species are applicable only 

on National Forest lands where old growth or late-successional forest conditions exist. Therefore, the 

areas where these species are most likely to require consideration would be in the vicinity of Dog 

Mountain, if relocation of the trailhead and parking lot were to result in tree removal and ground 

disturbance in areas that may exhibit old growth forest characteristics. Some terrestrial mollusk species 

could potentially be present in leaf litter in other forested areas adjacent to the roadway corridor (Carré 

2020, pers. comm.). For projects on National Forest land that are forwarded from this study, consultation 

with USFS is recommended to determine whether Survey and Manage species could apply. 

Migratory Bird Protection Act /Bald and Golden Eagle Protection Act

The bald eagle and golden eagle are protected under the BGEPA, which prohibits the taking or possession 

of, or commerce in, bald and golden eagles, with very limited exceptions. Migratory bird species are 

protected under the MBTA, which prohibits the destruction, or take, of migratory birds or their active 

nests. USFWS can issue a take permit for a project, but early coordination with USFWS is recommended 

to avoid take. Any projects forwarded because of this study would need to comply with the MBTA and the 

BGEPA.

If projects have the potential to take place during the nesting season for bald or golden eagles, an eagle 

nest survey may need to be conducted for compliance with the BGEPA. If nests are present, coordination 

with USFWS would be necessary to determine appropriate measures to avoid disturbing nesting eagles.
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EXISTING CONDITIONS REPORT 69

If proposed project construction cannot take place outside of the nesting season for migratory bird 

species, nesting bird surveys would be required before any removal of vegetation (tree or shrub) to

comply with the MBTA. If nests are present, the MBTA allows nest removal if eggs or young are not yet 

present. If active nests are located during construction and cannot be avoided, construction activities in 

the area must stop until young have fledged from the nest.
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Figure 23. ESA Critical Habitat in the Vicinity of the Study Area (1 of 2)
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EXISTING CONDITIONS REPORT 71

Figure 23. ESA Critical Habitat in the Vicinity of the Study Area (2 of 2)
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SOCIAL AND CULTURAL RESOURCES

DEMOGRAPHIC AND ECONOMIC CONDITIONS

Racial and ethnic diversity varies throughout the study area. Table 15 through Table 17 summarize the 

racial/ethnic and economic characteristics of multiple cities and the three counties in the study area 

compared to those characteristics in the state. 

The racial diversity and ethnic diversity in Clark, Skamania, and Klickitat counties are lower than the 

statewide levels, although the cities of Bingen and Lyle have higher racial and ethnic diversity than 

statewide; those cities have Hispanic or Latino populations of 43 percent and 36 percent, respectively, as 

shown in Table 17. Table 15 shows that Clark County has a median household income that is slightly higher 

than the Statewide median and has a lower poverty rate, likely due to the concentration of people living 

in Vancouver and surrounding cities of Clark County, who have higher incomes than the state median.

The cities of North Bonneville, Stevenson, and Carson all have similar racial and ethnic characteristics as 

Skamania County as a whole; the percentages of racially and ethnically diverse populations in Skamania 

County are still lower than state levels, as shown in Table 16. North Bonneville has a much lower poverty 

level, and Stevenson and Carson have slightly higher poverty levels than the state. The median household 

income levels of the three cities and the county are lower than the state median household income, likely 

due to the rural nature of Skamania County, which offers fewer economic opportunities than 

Washington’s larger cities. Both the cities of Stevenson and Carson have higher poverty levels than 

Skamania County and the state. 

Of the five cities within Klickitat County listed in Table 17, Dallesport is the only one that has lower 

racial/ethnic diversity levels than Klickitat County as a whole. The city of Wishram has a Native American 

population of 15 percent, which is significantly higher than Klickitat County and state levels because of

the presence of the Wishram Tribe, which is part of the Confederated Tribes of Warm Springs. The cities 

of Lyle, Dallesport, and Wishram have poverty levels significantly higher than those of Klickitat County or

the state, at 39 percent, 29 percent, and 27 percent, respectively, in comparison to 16 percent countywide 

and 10 percent statewide. Median household incomes are lower in all listed cities than they are in Klickitat

County or the state. Wishram has the lowest median household income, at $31,250. 

Table 15. Demographic and Economic Data near Study Area - Clark County

Clark County Washington State

Population (2019) 488,241 7,614,893

Racial/Ethnic 

Characteristics

White (not Hispanic or Latino) 77% 67%

Hispanic or Latino 10% 13%

Black or African American 2% 4%

Native American 1% 1%

Asian 4% 9%

Islander 1% 1%

Two or more races 4% 5%

Economic 

Characteristics

Median household income, 2019 $80,555 $78,687

Persons below poverty level 9.2% 9.8%

Source: Census Reporter, 2021. Summary of US Census – American Community Survey. Censusreporter.org.
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Table 16. Demographic and Economic Data near Study Area - Skamania County

North 

Bonneville Stevenson Carson Skamania County

Washington

State

Population (2019) 1,126 1,530 2,830 11,753 7,614,893

Racial/Ethnic Characteristics

White (not Hispanic 

or Latino) 89% 91% 83% 88% 67%

Hispanic or Latino 7% 7% 11% 6% 13%

Black or African 

American 0% 0% 0% 0% 4%

Native American 0% 1% 4% 2% 1%

Asian 1% 1% 2% 1% 9%

Islander 1% 0% 0% 0% 1%

Two or more races 2% 1% 0% 2% 5%

Economic 

Characteristics

Median household 

income, 2019 $64,952 $57,500 $55,819 $65,181 $78,687

Persons below 

poverty level 3.7% 15.7% 20.7% 12.8% 9.8%

Source: Census Reporter, 2021. Summary of US Census – American Community Survey. Censusreporter.org.

Table 17. Demographic and Economic Data near Study Area - Klickitat County

White 

Salmon Bingen Lyle Dallesport Wishram Klickitat County

Washington

State

Population (2019) 2,554 644 464 1,515 529 21,721 7,614,893

Racial/Ethnic Characteristics

White (not 

Hispanic or Latino) 77% 56% 64% 92% 82% 82% 67%

Hispanic or Latino 20% 43% 36% 0% 2% 12% 13%

Black or African 

American 0% 0% 0% 0% 0% 1% 4%

Native American 0% 0% 0% 0% 15% 2% 1%

Asian 0% 1% 0% 2% 0% 1% 9%

Islander 0% 0% 0% 0% 0% 0% 1%

Two or more races 3% 0% 0% 6% 1% 2% 5%

Economic

Characteristics

Median household 

income, 2019 $55,652 $54,327 $42,143 $54,609 $31,250 $55,773 $78,687

Persons below 

poverty level 6.7% 13.4% 39% 28.7% 26.5% 15.6% 9.8%

Source: Census Reporter, 2021. Summary of US Census – American Community Survey. Censusreporter.org.

LAND OWNERSHIP

Lands adjacent to the study area are owned primarily by either USFS or private parties. Other owners 

include other federal agencies, Washington State Parks, and the State of Washington. There are small 

pockets of land owned by counties, but the total area of county-owned is minor in comparison to the 

other ownership. Figure 24 shows land ownership near the study area.
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Figure 24. Land Ownership in and Adjacent to the Study Area
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CULTURAL RESOURCES

The National Historic Preservation Act (16 United States Code 470) is the primary federal law governing 

the preservation of cultural and historic resources in the United States. The National Historic Preservation 

Act established a national preservation program and the basic structure for encouraging the identification 

and protection of cultural and historic resources of national, state, tribal, and local significance. A key 

element of the preservation program is the National Register of Historic Places (NRHP), which is the 

federal list of historic, archaeological, and other cultural resources deemed worthy of preservation. In 

Washington, the National Register is administered by the Washington State Department of Archaeology 

and Historic Preservation (DAHP). Resources listed, or determined eligible for listing, are considered 

historic properties. Such properties are also generally afforded protection under Section 4(f) of the U.S. 

Department of Transportation Act of 1966. Section 106 of the National Historic Preservation Act requires 

federal agencies to consider the effects of their undertakings (including funding, licensing, or permitting

of the undertakings of other entities) on historic properties and stipulates that affected American Indian 

tribes must be consulted. The implementing regulations of Section 106 also require agencies to seek ways 

of avoiding, minimizing, or mitigating any adverse effects on historic properties.

To comply with these regulations and with NEPA, agencies must consider the effects of proposed projects 

on previously identified resources as well as resources not yet identified. In addition, in accordance with 

the Archaeological Sites and Resources Act (Revised Code of Washington [RCW] 27.53) and the Indian 

Graves and Records Act (RCW 27.44), a permit must be obtained from DAHP before any excavation that 

will alter, dig into, deface, or remove archaeological resources, including American Indian graves, cairns, 

or glyptic records. The State Historic Preservation Officer reviews and comments on archaeological 

surveys performed on-site and makes determinations regarding eligibility and effect.

In addition, U.S. Government agencies have a permanent legal obligation to exercise statutory and other 

legal authorities to protect tribal land, assets, resources, and treaty rights, as well as a duty to carry out 

the mandates of federal law with respect to American Indian and Alaska Native tribes. In the study area, 

the CRGNSA consults with federally recognized tribes that are culturally and historically affiliated with and

have ongoing interest in management of CRGNSA-administered lands. These tribes include the 

Confederated Tribes of the Warm Springs, the Yakama Nation, the Nez Perce Tribe, and the Confederated 

Tribes of Umatilla Indian Reservation. The Warm Springs and Yakama Tribes have ceded lands within the 

CRGNSA, but all four have strong ties to the Columbia River. 

USFS also consults with the Confederated Tribes of the Grand Ronde, the Cowlitz Tribe, and the Siletz 

Tribe. Members of local tribes use SR 14 for access to traditional hunting, fishing, and gathering areas.

Additional statutes, regulations, and policies aimed at protecting cultural resources include:

• American Indian Religious Freedom Act

• Antiquities Act of 1906 

• Archaeological Resources Protection Act of 1979 

• Native American Graves Protection and Repatriation Act of 1990

• EO 13175 (Consultation and Coordination with Indian Tribal Governments)

• EO 11593 (Protection and Enhancement of the Cultural Environment)

DAHP maintains a GIS database of buildings, structures, and sites that have been evaluated for inclusion 

in the NRHP or its State of Washington equivalent, the Washington Heritage Register, as well as all above-
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ground resources that have been surveyed. Access to archaeological data is redacted from public viewing 

in accordance with state law. 

According to Washington DAHP, there are two areas in the study area that are on the state and/or national 

registers: The Bonneville Dam Historic District and the Klickitat River Bridge. There are also several sites 

that are in the study area or are accessed from the study area that are eligible for listing on the registers 

or for which a determination of eligibility has yet to be made. 

It is unlikely that the study area has been completely surveyed for historic and archaeological resources. 

Before any ground-disturbing actions can occur in the study area, an archaeological field investigation 

must be completed.

Washington State Historic Highway Bridges

Table 18 shows the bridges in the study area that are listed in the NRHP (NR), have been determined 

eligible for listing in the NRHP (NR DE), or have been nominated or recommended eligible for inclusion in 

the NRHP. 

Table 18. Historic Highway Bridges in the Study Area

County

Structure 

ID Bridge No. Bridge Name

Year 

Built Owner Inventory

Skamania/ Hood River 

(Oregon)

8712700 259228300 Bridge of the Gods 1926 Port of 

Cascade 

Locks

NR DE

Klickitat 0001727A 14/212 Klickitat River 1933 WSDOT NR DE

Klickitat 0001492B 14/222 Horsethief Canyon 1931 WSDOT NR DE

Klickitat-Hood River 

(Oregon)

000000PH 6645 Hood River-White 

Salmon 1924 Port of Hood River

NR DE

Source: WSDOT

There are also seven tunnels and several stone walls along SR 14 through the CRGNSA. All but 

one of the tunnels (at MP 59.61) are listed as having historical and engineering interest to the 

state.

NOISE

Traffic noise may need to be evaluated for any future improvements in the study area. A noise analysis is 

required for projects that include a substantial shift in the roadway horizontal or vertical alignments, 

increase the number of through lanes, provide passing lanes, or increase traffic speed and volume. Such 

an analysis includes measuring ambient noise levels at selected receivers and modeling design year noise 

levels using projected traffic volumes. If modeled noise levels approach or substantially exceed noise 

abatement criteria for the project, noise abatement measures may be necessary. Possible abatement 

measures available for consideration include, but are not limited to, one or more of the following:

• Modifying the existing or proposed roadway horizontal or vertical alignment

• Constructing noise barriers such as sound walls or earthen berms

• Decreasing traffic speed limits

Noise abatement measures must be considered reasonable and feasible and be supported by the 

members of the public who would be affected.
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 77

Construction activities associated with any improvements resulting from this study may cause localized, 

short-duration noise impacts. These impacts can be minimized by using standard WSDOT specifications 

for the mitigation of noise sources during construction.

VISUAL RESOURCES

Scenic quality is a fundamental element of recreation experiences, and this is especially true 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.” Knowing the locations of the KVAs in the study area will help to identify potential 

underlying contributing factors to the current traffic patterns as well as the crash history along the SR 14 

corridor in the study area. The following KVAs have been identified that are within the SR 14 study area 

specifically or in the Gorge overall:

Washington Oregon

• SR 14

• Beacon Rock

• Dog Mountain Trail

• Washington SR 141

• Washington SR 142

• Cook-Underwood Road

• Oregon Highway 35

• Historic Columbia River Highway

• Crown Point

• Highway I-84, including rest stops

• Rowena Plateau and Nature Conservancy 

Viewpoint

• Panorama Point Park

Bi-State

Bonneville Dam Visitor Centers

Columbia River
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 1

REFERENCES

Camp, Pamela and Gamon, John G. 2011. Field Guide to the Rare Plants of Washington

Seattle, WA: University of Washington Press. Co-published with Washington Natural Heritage 

Program and Washington State Department of Natural Resources. February 2011.

Carré, Brett. 2020. Wildlife and Fisheries Programs Manager, U.S. Forest Service. Columbia River Gorge 

National Scenic Area. Personal communication via conference call, September 29, 2020.

Census Reporter, 2021. Summary of US Census – American Community Survey. Censusreporter.org.

City of Seattle Office of Emergency Management. 2019. Seattle Hazard Identification and Vulnerability 

Analysis. April 10, 2019.

Columbia River Gorge Commission (CRGC) and USDA Forest Service (USFS). 2016. Management Plan 

for the Columbia River Gorge National Scenic Area as amended through August 2016.

_____. 2020. Draft Management Plan for the Columbia River Gorge National Scenic Area as amended 

through August 2020.

Federal Emergency Management Agency (FEMA). 2003. National Earthquake Hazards Reduction 

Program Recommended Provisions for Seismic Regulations for New Buildings and Other 

Structures. FEMA 450-1 / 2003 Edition.

Accessed September 15, 2020 at: https://www.fema.gov/media-library-data/20130726-1532-

20490-4965/fema_450_1_provisions.pdf.

_____. 2020. “Benefits of Natural Floodplains.” Information obtained from FEMA website. Accessed 

September 25, 2020 at: https://www.fema.gov/benefits-natural-floodplains.

National Marine Fisheries Service (NMFS). 2020. NMFS Protected Resources App. Accessed 

September 14, 2020 at:

https://www.webapps.nwfsc.noaa.gov/portal/apps/webappviewer/index.html?id=7514c715b8

594944a6e468dd25aaacc9.

StreamNet Mapper. 2020. Fish Distribution and Abundance Mapper. Accessed September 15, 2020 at:

https://psmfc.maps.arcgis.com/apps/webappviewer/index.html?id=3be91b0a32a9488a901c38

85bbfc2b0b.

U.S. Army Corps of Engineers (USACE). 1987. USACE Wetland Delineation Manual, Environmental 

Laboratory, 1987.

_____. 2010. Regional Supplement to the Corps of Engineers Wetland Delineation Manual: Western 

Mountains, Valleys, and Coast Region.

U.S. Geological Survey (USGS). 2020. “Stream Ecology.” Accessed October 5, 2020 at:

https://www.usgs.gov/mission-areas/water-resources/science/stream-ecology?qtscience_center_objects=0#qt-science_center_objects.

USDA Natural Resources Conservation Service (NRCS). 1996. Riparian Areas Environmental Uniqueness, 

Functions, and Values. RCA Issue Brief #11 August 1996. Accessed October 5, 2020 at:

https://www.nrcs.usda.gov/wps/portal/nrcs/detail/national/technical/?cid=nrcs143_014199#w

hat.
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

EXISTING CONDITIONS REPORT 2

U.S. Forest Service (USFS). No date. Sensitive species list for the Columbia River Gorge National Scenic 

Area.

U.S. Fish and Wildlife Service (USFWS). 2020a. National Wetlands Inventory. Accessed September 16, 

2020 at: https://www.fws.gov/wetlands/.

_____. 2020b. Information on federally listed endangered, threatened, and special-status species 

obtained from USFWS Information for Planning and Consultation (IPaC) online mapping tool. 

Accessed September 14, 2020 at: https://ecos.fws.gov/ipac/.

_____. 2020c. Critical Habitat for Threatened and Endangered Species online GIS tool. Accessed 

September 15, 2020 at: 

https://fws.maps.arcgis.com/home/webmap/viewer.html?webmap=9d8de5e265ad4fe09893cf7

5b8dbfb77.

_____. 2020d. “Northern Spotted Owl.” Accessed September 21, 2020 at:

https://www.fws.gov/oregonfwo/articles.cfm?id=149489595.

Washington Department of Fish and Wildlife (WDFW). 2020. Priority Habitats and Species (PHS) online 

mapping tool. Available at: https://geodataservices.wdfw.wa.gov/hp/phs/.

Washington Natural Heritage Program (WNHP). 2020. GIS data for sensitive wildlife species 

documented within and adjacent to the study area. September 2020.

Washington State Department of Transportation (WSDOT). 2021. Washington State Pavement 

Management System (WSPMS) WebWSPMS database. Available at:

https://www.arcgis.com/home/item.html?id=f49a4724610548c693680fa745b0a44e.

Washington State Department of Transportation (WSDOT). 2020. Washington State Highway Log. 

Available at: http://www.wsdot.wa.gov/mapsdata/roadway/statehighwaylog.htm
Appendix B

Dog Mountain Concept 

Refi nement Report
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SR 14 AND DOG MOUNTAIN

CONGESTION AND SAFETY STUDY

Dog Mountain Concept Refinement Report

Contract No. DTFH7015D00002, Task Order No. 69056720F000058:

WA DOT 14(4), Congestion and Safety Mitigation Plan

WA DOT 14(3), Dog Mountain Trailhead Study

Prepared for:

Western Federal Lands Highway Division

Prepared by:

David Evans and Associates, Inc.

2100 South River Parkway, Suite 100

Portland, OR 97201

November 2022
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY NOVEMBER 2022

DOG MOUNTAIN CONCEPT REFINEMENT REPORT i

CONTENTS

Introduction ..................................................................................................................................................1

Background ...............................................................................................................................................1

Problem Statement...................................................................................................................................1

Purpose of Concept Refinement Report...................................................................................................2

Existing Conditions........................................................................................................................................2

General Conditions ...................................................................................................................................2

Historical Use Information........................................................................................................................2

Land Use....................................................................................................................................................5

Environmental Conditions ........................................................................................................................6

Existing and Projected Traffic Volumes ....................................................................................................9

Crash History.............................................................................................................................................9

Project Concept Refinement.......................................................................................................................12

Project Vision ..........................................................................................................................................12

Preliminary Screening .............................................................................................................................13

USFS Interdisciplinary Team Site Visit.....................................................................................................16

Refined Conceptual Parking Relocation Sites.........................................................................................17

Trails........................................................................................................................................................28

Access and Safety Improvement Opportunities.....................................................................................28

Next Steps: Studies and Site Investigations Needed ..................................................................................33

Conceptual Design Package ....................................................................................................................33

Key Issues to be Resolved .......................................................................................................................33

References ..................................................................................................................................................34

FIGURES

Figure 1. Land Use.........................................................................................................................................6

Figure 2. Dog Mountain Crash History (2015–2019) ..................................................................................11

Figure 3. Dog Mountain Crash Diagram......................................................................................................11

Figure 4. Dog Mountain Trailhead Initial Conceptual Locations.................................................................12

Figure 5. Dog Mountain Trailhead Initial Conceptual Locations Screening Outcome S .............................14

Figure 6. July 27, 2021, Site Visit Route ......................................................................................................16

Figure 7. Concept 1: NW Grant Lake Dispersed..........................................................................................19

Figure 8. Concept 2: NW Grant Lake Compact ...........................................................................................21

Figure 9. Existing Conditions Preliminary Visualization from Dog Mountain Trail Summit........................24

Figure 10. Concept 1 Preliminary Visualization from Dog Mountain Trail Summit....................................25

Figure 11. Concept 2 Preliminary Visualization from Dog Mountain Trail Summit....................................26

Figure 12. Preliminary Visualization from SR 14.........................................................................................27
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY NOVEMBER 2022

DOG MOUNTAIN CONCEPT REFINEMENT REPORT ii

TABLES

Table 1. Historic Aerial Documentation........................................................................................................3

Table 2. SR 14 Crash History (2015–2019): MP 52.3 – MP 54.3 .................................................................10

Table 3. Concept Refinement: Preliminary Screening Feedback................................................................15

Table 4. Interim Strategies for Consideration at Existing Dog Mountain Trailhead ...................................28

Table 5. Long-Term Mitigation Considerations at Existing Dog Mountain Trailhead.................................30

Note: The SR 14 and Dog Mountain Congestion and Safety Study (Existing Conditions Chapter) provides a 

comprehensive review of the SR 14 corridor component of the study area. 
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY NOVEMBER 2022

DOG MOUNTAIN CONCEPT REFINEMENT REPORT 1

INTRODUCTION

Background

The Federal Highway Administration (FHWA) is partnering with the United States Forest Service (USFS) 

and the Washington State Department of Transportation (WSDOT) (referred to as the “project partners”)

to develop a congestion and safety plan for an 80-mile stretch of Washington State Route (SR) 14 and an 

assessment of existing and projected future conditions at the Dog Mountain Trailhead. One of the results 

of this partnering effort is the preparation of the SR 14 and Dog Mountain Congestion and Safety Study

(referred to as the “study”). The study was guided by a Core Project Team (CPT), which included 

representatives from FHWA, USFS, WSDOT, and the consultant David Evans and Associates, Inc. (DEA).

The purpose of this specific assessment at Dog Mountain (which is also Appendix B to the SR 14 and Dog 

Mountain Congestion and Safety Study, the “study”) is to identify the potential for relocation of the 

existing parking lot at the Dog Mountain Trailhead that is directly adjacent to SR 14. DEA is the consultant

responsible for the planning analysis and preparation of conceptual design materials, hereafter referred 

to as the “project”.

Problem Statement

The Dog Mountain and Augspurger Trail system has become one of the most popular hikes in the Columbia 

River Gorge National Scenic Area (CRGNSA). Dramatic wildflower displays and views of the Gorge draw 

hikers from around the region to this hike. The Dog Mountain Trailhead, located on SR 14 near milepost

(MP) 53.7, serves this trail system. Currently, the parking lot at the Dog Mountain Trailhead is an 

undeveloped gravel area immediately adjacent to SR 14. Over the years WSDOT and the USFS have

worked together to mitigate congestion and highway safety-related issues associated with the trailhead 

by developing a permit system and shuttle options used to manage parking during peak visitation. 

In 2015, representatives from partnering agencies (Skamania County, WSDOT, Washington State Patrol

(WSP), USFS, and BNSF Railway (BNSF)) met to explore safety mitigation measures at Dog Mountain 

Trailhead, which included: early warning signs, no parking signs, law enforcement, parking lot 

reconfiguration from approximately 120 to 70 to 80 cars, shuttle bus to reduce congestion, and a warning 

sign (using variable message sign technology) directing visitors to use the shuttle. While this interagency 

effort has improved the situation at the trailhead, recreation use has increased so much that it now has 

overwhelmed the measures that were implemented. Despite enforcement of no parking signs and towing

of vehicles parked in violation of those signs, as well as increased ridership of the shuttle bus, 

unauthorized parking along the shoulders of SR 14 near the trailhead still occurs. This continued 

unauthorized parking has prompted USFS to implement a required entry permit in order to reduce the 

number of cars that can access the site during peak season.

Projected use is likely to continue its upward trend and managing congestion in the long run under the 

existing configuration will continue to be a challenge. Complexities of the underlying land ownership and 

preliminary results from an environmental study at the existing parking lot have limited previous efforts 

to improve and enhance the situation. 

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 National Scenic Area Act. 
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY NOVEMBER 2022

DOG MOUNTAIN CONCEPT REFINEMENT REPORT 2

Purpose of Concept Refinement Report

The primary purpose of this Concept Refinement Report is to provide the agencies responsible for the 

development and implementation of the project the information needed to refine project scope. This 

information includes the project purpose and need and establishes a reasonable range of conceptual 

layouts. As such, this report will also serve a secondary purpose to support subsequent National 

Environmental Policy Act (NEPA) analysis by providing an account of project purpose and need, and a 

rational basis for the reasonable range of concepts. 

EXISTING CONDITIONS

The existing condition section examines the Dog Mountain Trailhead and lands west of the trail system as 

depicted in Figure 1, hereafter referred to as the “focus area”.

General Conditions

The existing Dog Mountain Trailhead parking lot 

is located along the north side of SR 14 near 

milepost 54 and has an uncontrolled 

ingress/egress that is approximately 600 feet 

wide. The parking lot is generally flat and at the 

same level as SR 14. There is a horizontal curve 

and steep topography on SR 14 east of the 

trailhead that limits sight distance for vehicles 

traveling west on SR 14 and for vehicles 

attempting to turn left onto SR 14 eastbound 

from the parking lot. 

Dog Mountain is most popular in the spring between April and June, when wildflowers are blooming, 

although recreationalists visit throughout the 

year for the trail’s panoramic views of the 

CRGNSA or to train for other more difficult climbs. When vehicle parking overflows onto the shoulder of 

SR 14, visitors walk along the narrow shoulder of SR 14 and the BNSF railroad corridor to access the 

trailhead. Crash data between 2015 and 2019 documents seven crashes between milepost 53.3 and 

milepost 54 in that time frame, including one fatality and one suspected serious injury involving a 

pedestrian.

Historical Use Information

In February 2007, a report prepared for FHWA Western Federal Lands Highway Division by GRI 

Geotechnical & Environmental Consultants summarized the historical use information of the existing site. 

GRI reviewed aerial photographs dated 1935, 1948, 1957, 1968, 1971, 1989, and 1995 that were obtained 

from the U.S. Army Corps of Engineers (USACE) Portland District office. Land is described below in Table 

1 below describes land use at the site, based on interpretation of those photographs.

SR 14 Dog Mountain Trailhead parking lot 

Source: USFS
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY NOVEMBER 2022

DOG MOUNTAIN CONCEPT REFINEMENT REPORT 3

Table 1. Historic Aerial Documentation

Date Comments Aerial Photograph

1935 No structures are visible on 

the project site or in the 

immediate vicinity. The site is 

a small, cleared area 

surrounded by trees. An 

unpaved road leads from the 

cleared area to the east. The 

site is north of a roadway and 

railroad. A wide strip of 

vegetated land separates the 

roadway from the Columbia 

River. Power lines are visible 

in a cleared right-of-way lying 

in a northwest-southeast line 

east of the project site.

1948 The cleared area has been 

enlarged to the approximate 

dimensions of the current 

parking lot. A structure is 

visible in the center of the 

site. Three vehicles are visible 

parked near the eastern end 

of the cleared area. A small 

structure is visible along the 

unpaved road at the eastern 

end of the site. Much of the 

wide strip of land adjoining 

the Columbia River has been 

eroded, leaving a point of 

land southeast of the project 

site. Buildings are visible on 

the point.

1957 Three additional structures 

are visible in the cleared area

around the central structure: 

a medium building to the 

northwest, a smaller building 

to the north, and a small, 

elongated building to the 

east. Two cars are parked 

adjacent to the central 

structure, which appears to 

be a commercial building. A 

beacon is present on the tip 

of the point. No significant 

changes were noted in the 

surrounding area.
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY NOVEMBER 2022

DOG MOUNTAIN CONCEPT REFINEMENT REPORT 4

Date Comments Aerial Photograph

1968 The small building at the 

north of the cleared area and 

the small, elongated building 

have been removed. Utility 

poles and an object that 

appears to be a flagpole are 

located in the cleared area. 

An object resembling a gas 

pump is present south of the 

central building. The building 

at the northwest border of 

the site appears to be 

commercial. Three cars and a 

larger truck are present. No 

significant changes were 

noted in the surrounding 

area.

1971 Four shed-like structures are 

visible along the eastern and 

northern border of the 

cleared area. Uncovered 

equipment is visible in the 

vicinity of these structures. 

Landscaping is visible 

surrounding the central 

building. Two objects 

resembling large trucks or 

mobile homes are visible near 

the western end of the 

project site. No significant 

changes were noted in the 

surrounding area.

1989 All structures appear to have 

been removed from the 

project site. The unpaved dirt 

road appears to have become 

overgrown. Four vehicles are 

parked near the northern 

border of the cleared/parking 

area. No significant changes 

were noted in the 

surrounding area.
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY NOVEMBER 2022

DOG MOUNTAIN CONCEPT REFINEMENT REPORT 5

Date Comments Aerial Photograph

1995 No significant changes were 

noted on the project site or in 

the surrounding area.

2022 Site under current parking lot 

configuration

Source: WA PFH 185-1 (7) SR-14, Dog Mountain Trailhead, Skamania County, Washington, Phase I Initial/Environmental Site 

Assessment, GRI, April 3, 2007.

Google Aerial Imagery, 2022

Land Use

The Columbia River Gorge Commission and counties within the CRGNSA have the authority to jointly grant 

land use approvals according to uses outlined the CRGNSA Management Plan. The CRGNSA includes three 

distinct areas: General Management Areas (GMAs), Special Management Areas (SMAs), and Urban Areas. 

The Dog Mountain and Augspurger Trail system and the lands with potential to accommodate the 

relocation of the existing trailhead are designated as SMAs. USFS is the principal landowner for SMAs, 

whose uses are more restricted than those of designated GMAs.

The CRGNSA Management Plan further designates policies and provisions related to development for four 

“recreation intensity classes” (RICs) in GMA and SMA lands. The RIC dictates the allowable recreation uses

for the land. RIC 1 indicates that the area is suitable for very low intensity recreation and has more 

stringent guidelines than RIC 4, which indicates that the area is suitable for high intensity recreation. 

Related to the potential trailhead and parking lot development or relocation, the RIC of the 

trailhead/parking lot site, as shown in Figure 1, will play an important role in the development and 

selection of alternatives. The existing parking lot includes portions with RICs of 1, 2, and 4, which may limit 
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY NOVEMBER 2022

DOG MOUNTAIN CONCEPT REFINEMENT REPORT 6

the ability to improve the area in its current location and still maintain current capacity. The land that 

serves the parking lot also spans three separate owners: WSDOT, USFS, and BNSF (see Dog Mountain 

Trailhead Initial Conceptual Locations in Figure 4, page 12).

Figure 1. Land Use

Environmental Conditions

The environmental screening exercise for the Dog Mountain Concept Refinement Report is a scoping-level 

effort that includes information available through desktop studies and project site visits. If improvement 

options from the study or refinement report are advanced into project development, a detailed analysis 

for consistency with the Management Plan for the Columbia River Gorge National Scenic Area (CRGNSA 

Management Plan) and 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 report may be used as guidance for the planning process at that time.

Physical Environment

Geologic Hazards

The National Earthquake Hazards Reduction Program seismic site classification system provides a measure 

of the potential for strong shaking in an area during an earthquake. This approach categorizes soils into 

six classes (A through F) based on vertical shear wave velocity profile, thickness, and liquefaction potential. 

Earthquake hazard potential increases from Class A to Class E soils. Much of Dog Mountain and the area 

Dog Mountain 

Trailhead 

(Existing)
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY NOVEMBER 2022

DOG MOUNTAIN CONCEPT REFINEMENT REPORT 7

west of Dog Mountain and east of Wind Mountain have Class D soils, indicating a high potential for 

earthquake shaking and liquefaction. 

The Washington Geological Survey maintains a clearinghouse of geologic hazard information, including 

mapped landslides and landslide hazard potential. Deep-seated landslides occur at depths of more than 

6 feet to 10 feet and are typically ancient landslides that have been on the landscape for centuries or 

longer. Much of Dog Mountain and the area west of Dog Mountain and east of Wind Mountain are 

classified as such with a high landslide susceptibility. 

Access and parking projects advanced from the study will need to account for nearby geologic hazard 

potential in their design. Geotechnical investigations will likely be required to support project design and 

construction. 

Streams, Riparian Habitats, and Wetlands (Water Resources)

The CRGNSA Management Plan policies emphasize protecting and enhancing aquatic and riparian 

systems. Activities that impact streams, riparian habitats, wetlands (including ponds and lakes), and their 

buffers must be avoided or offset through mitigation and restoration to the greatest extent practicable.

STREAMS AND RIPARIAN AREAS

The CRGNSA Management Plan stipulates that proposed uses adjacent to streams, ponds, and lakes must 

preserve an undisturbed buffer zone that is wide enough to protect both the aquatic and riparian areas. 

Buffer zones are based on the characteristics of the individual stream (i.e., perennial or intermittent) and 

the vegetation community type (i.e., forest, shrub, or herbaceous). Field surveys will be required to 

determine potential impacts to any streams and associated riparian areas. Coordination with the 

appropriate federal and state wildlife agency U.S. Fish and Wildlife Service (USFS), and Washington State 

Department of Fish and Wildlife (WDFW), will determine the appropriate width for proposed protective 

buffers, and the results of that coordination will lead to development of plans for protection or mitigation.

WETLANDS

For any potential trailhead and parking relocation, on-site delineations will need to be conducted 

according to the Level 2 Routine On-Site Method (USACE 1987; USACE 2010) in order to verify the 

presence of wetlands and identify any potential impacts.

The CRGNSA Management Plan stipulates that new uses must be sited to avoid wetlands to the greatest 

extent possible. Impacts to wetlands are allowed only when they are unavoidable, in the public interest, 

and all practicable measures to minimize impacts have been applied. Any proposed project that could 

affect wetlands requires coordination with the appropriate agencies that regulate wetland impacts 

(USACE and Washington Department of Ecology) and impacts to wildlife habitat (USFWS, WDFW, and 

USFS and/or National Marine Fisheries Service, as applicable) to determine the appropriate approaches 

for impact mitigation or compensation.

Natural Resources

Vegetation (Rare Plants and Natural Areas)

The varied landscape at and around the trailhead provides habitat for numerous species of rare plants, 

many of which are endemic to the CRGNSA. The CRGNSA Management Plan policies require that any new 

development to have no adverse effects on rare plants.
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY NOVEMBER 2022

DOG MOUNTAIN CONCEPT REFINEMENT REPORT 8

Several ecologically and scientifically significant areas, designated in the CRGNSA Management Plan as 

Natural Areas, have been identified as outstanding examples of the diversity of the landscape and 

ecosystems throughout the CRGNSA. Dog Mountain is a designated Natural Area. The vegetation and 

terrain of this Natural Area features fir and hemlock in the west, transitioning to oak and ponderosa pine 

forests in the east, as well as talus slopes and grasslands.

The CRGNSA Management Plan stipulates that Natural Areas must be protected from adverse effects. 

Uses that would adversely affect native plant communities and rare plants are prohibited in designated

Natural Areas. Projects advanced from the SR 14 and Dog Mountain Congestion and Safety Study would 

need to address any potential impacts on Natural Areas and include consultation with USFS botanists.

Fish and Wildlife (Priority Habitats and Sensitive Wildlife Sites)

The CRGNSA Management Plan emphasizes wildlife habitat protection by requiring projects to ensure 

that new uses do not adversely affect Priority Habitats or sensitive wildlife sites. 

Priority Habitats are those habitats that are important for providing nesting, roosting, denning, foraging, 

and other life cycle needs for wildlife species in the CRGNSA. USFS and state wildlife agencies identify the 

Priority Habitats in the CRGNSA as part of State Wildlife Action Plan efforts and revise them from time to 

time. In addition to avoiding adverse impacts to these resources, proposed projects are directed by the 

CRGNSA Management Plan to enhance wildlife habitat that has been altered or destroyed by past uses.

Projects advanced from the study would be required to identify any Priority Habitats within the project 

vicinity via field survey and to maintain adequate buffer zones in order to protect them. Any proposed 

development within 1,000 feet of a Priority Habitat would need be evaluated for adverse effects in 

coordination with WDFW and USFS, as applicable. 

The CRGNSA Management Plan uses the generic term “sensitive wildlife sites” to refer to sites that are 

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 (limited to great blue heron, osprey, golden eagle, and prairie falcon) (CRGC 

and USFS 2016; CRGC and USFS 2020). The CRGNSA Management Plan requires site-specific plans for 

development proposed near sensitive wildlife sites. Buffer zones must be established, which are 

determined on a case-by-case basis depending on the biology of the affected species, the characteristics 

of the project site, and the proposed use. If proposed new development could alter habitat, resource 

rehabilitation and mitigation are required to reduce and offset the alterations and effects. For projects 

advanced as a result of the study, consultation with WDFW would be required to determine whether a 

proposed project is located within 1,000 feet of a sensitive wildlife site. 

Threatened and Endangered Species

As it relates to the Dog Mountain Trailhead focus area, designated critical habitat for USFWS-regulated 

federally threatened northern spotted owl (Strix occidentalis caurina) is present in the western portion of 

the CRGNSA and is concentrated in the portion of the study area between Beacon Rock State Park and 

the Dog Mountain Trailhead (USFWS 2020b). Critical habitat is the specific areas within the geographic 

area, occupied by the species at the time it was listed, that contain the physical or biological features that 

are essential to the conservation of endangered and threatened species and that may need special 

management or protection.
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY NOVEMBER 2022

DOG MOUNTAIN CONCEPT REFINEMENT REPORT 9

Any concepts advanced from this refinement report would not be expected to have direct impacts to 

listed fish species and their critical habitat in the Columbia River. However, potential impacts from 

stormwater runoff would need to be evaluated on a project-by-project basis in coordination with WDFW. 

Other Species of Concern

In addition to the species listed under the federal Endangered Species Act referred to above, proposed 

projects and management activities in the CRGNSA must consider several other species that are protected 

by state or federal law or by agency management policy. These other species of concern include species 

identified as “Sensitive” by USFS and WDFW, USFS “Survey and Manage” species (on National Forest lands 

only), and species protected under the Bald and Golden Eagle Protection Act and Migratory Bird 

Treaty Act. 

WASHINGTON DEPARTMENT OF FISH AND WILDLIFE

There is an October 2018 Memorandum of Understanding (MOU) between the WDFW and USFS for 

management of western pond turtle (WPT) (Actinemys marmorata) may be relevant to the proposed Dog 

Mountain Trailhead relocation project. The October 2018 MOU between WDFW and USFS specifically 

covers the Collins/Bergen Western Pond Turtle Area, which is near Grant Lake, west of the existing Dog 

Mountain Trailhead and parking lot. Any new parking lot/trailhead relocation designs will need to take 

the contents of the MOU into account. Considerations of the MOU as they relate to potential parking 

lot/trailhead concepts are discussed further in this report in the section titled “Refined Conceptual Parking 

Relocation Sites” (page 17).

Visual Resources

Scenic quality is a fundamental element of recreation experiences, especially within the CRGNSA. The 

CRGNSA Management Plan has defined 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.” Identified KVAs of relevance to the Dog Mountain Trailhead Focus Area are:

• Washington State Route 14

• Dog Mountain Trail

• Interstate 84

• Historic Columbia River Highway State Trail

Existing and Projected Traffic Volumes

Estimated existing Annual Average Daily Traffic (AADT) along this section of SR 14 is 3,600 vehicles per 

day, with a year 2040 projected AADT of 5,250 vehicles per day based on a trendline of the previous 10 

years of growth. The truck percentage of total AADT is 7 percent for single unit trucks, 8 percent for double 

unit trucks, and 1 percent for triple unit trucks.

1

Crash History

The study conducted a safety analysis to determine whether any significant, documented safety issues 

exist within the focus area and to inform future measures or general strategies for improving overall 

safety. The safety analysis included a review of crash history data supplied by the WSDOT Crash Data and 

1 https://www.wsdot.wa.gov/mapsdata/tools/trafficplanningtrends.htm
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DOG MOUNTAIN CONCEPT REFINEMENT REPORT 10

Reporting Branch. The crash records were provided in a Geographic Information System shapefile and 

included all reported crashes from January 1, 2015, to December 31, 2019. 

As it relates to the Dog Mountain Trailhead Focus Area, the crash analysis reviewed crashes along SR 14 

from MP 52.3 to MP 54.3, assummarized in Table 2 and shown in Figure 2. There were 14 crashes reported 

in this segment within the five-year analysis period, seven of which were within 0.5 mile east and west of 

the existing Dog Mountain Trailhead parking lot (the “influence area” of the parking lot).

Of those seven crashes within the influence area of the parking lot, one resulted in serious injury, and one 

resulted in a fatality. The serious injury was the result of a pedestrian crash, and the fatal injury was the 

result of a rear end collision.

Table 2. SR 14 Crash History (2015–2019): MP 52.3 – MP 54.3

SR 14 Segment

Crash Type Severity

Fixed ObjectAnimalFallen RockPedestrianRear EndOtherProperty Damage OnlyPossible InjuryMinor InjurySerious InjuryFatal InjuryTotal

MP 52.3 – MP 52.8 3 1 2 1 1 4

MP 52.8 – MP 53.3 1 1 2 2

MP 53.3 – MP 53.8 1 3 2 1 1 4

MP 53.8 – MP 54.3 3 1 2 1 1 4

Total: 3 1 4 1 4 1 6 4 2 1 1 14

Source: WSDOT Crash Data and Reporting Branch2

2 Under Section 409 of Title 23 of the United States Code, any crash data furnished is prohibited from use in any litigation against 

state, tribal or local government that involves the location(s) mentioned in the crash data.
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DOG MOUNTAIN CONCEPT REFINEMENT REPORT 11

Figure 2. Dog Mountain Crash History (2015–2019)

Figure 3 illustrates the crashes immediately fronting of the Dog Mountain trailhead parking lot. It shows 

that all the recent crashes in the area were rear-ends. This indicates a need for a dedicated left-turn lane, 

especially with 2 out of the 3 crashes being rear-ends into stationary vehicles (likely turning into the 

parking lot).

Crashes within mileposts 53.6 and 53.8.

Figure 3. Dog Mountain Crash Diagram
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DOG MOUNTAIN CONCEPT REFINEMENT REPORT 12

PROJECT CONCEPT REFINEMENT

The study originally identified five conceptual locations for the Dog Mountain Trailhead relocation based 

on information available in the Federal Lands Access Program (FLAP) application3for the project and 

review of the existing topography:

1. Grant Lake

2. Mountain Glade West

3. Mountain Glade East

4. Maintenance Yard

5. Existing

The general locations of these sites are depicted in Figure 4.

Conceptual Location: 1. Grant Lake; 2. Mountain Glade West; 3. Mountain Glade East; 

4. Maintenance Yard; 5. Existing

Project Vision

The vision statement for this Dog Mountain component of the SR 14 and Dog Mountain Congestion and 

Safety Study is: To manage congestion at, and promote safe access to, the Dog Mountain Trailhead 

through the identification of design concepts that are consistent with the CRGNSA Management Plan.

3

The Federal Lands Access Program (Access Program) was established to improve transportation facilities that provide access to, 

are adjacent to, or are located within Federal lands.

Figure 4. Dog Mountain Trailhead Initial Conceptual Locations

## 
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DOG MOUNTAIN CONCEPT REFINEMENT REPORT 13

Project Purpose

The purpose of the project is to:

• Minimize/eliminate hazardous conditions along SR 14 as they relate to accessing the Dog

Mountain Trailhead

• Discourage parking on SR 14 and walking along SR 14 and railroad tracks

• Ensure protection of natural, cultural, and scenic resources while providing visitor access.

• Offer high-quality recreation opportunities of the Dog Mountain Trail

Project Need (Conditions Requiring Relief)

The current, defined trailhead visitor parking area accommodates 70 to 80 vehicles. The assumption is 

that the visitor parking capacity at the existing facility is acceptable and appropriate when parking occurs 

within the defined parking area. However, the parking capacity is not acceptable or appropriate when 

vehicle parking exceeds the current capacity amount and spills over to the highway. The current problems 

comprising the Project Need relate to transportation safety.

There are existing hazardous road conditions for visitors accessing the current Dog Mountain Trailhead 

parking area:

• Parking occurs on the shoulder of SR 14.

• Pedestrians walk along the north shoulder of SR 14 when parking overflows from the parking lot.

• Crashes (in the five-year from 2015 to 2019, seven crashes recorded within approximately 0.5

mile of the parking lot, including one fatal crash and one pedestrian-related crash).

• Sight distance is limited to the east.

• There is no controlled access point for traffic entering/exiting the existing Dog Mountain Trailhead

parking lot.

Regardless of where the project locates the trailhead, the parking lot will incorporate space for the current 

fleet of shuttle buses that serve the trailhead. 

Considerations

There are other considerations for determining the feasibility of the trailhead relocation, as follows:

• Minimize the additional length of the trail to Dog Mountain in order to maintain the trail level of 

difficulty and encourage parking at the designated lot

• Minimize impacts to scenic, natural and cultural resources

• Consider location that minimizes visual impacts to KVAs

• At minimum, provide the same visitor amenities as at the existing parking lot/trailhead

• Use the existing two-track road system where feasible

Preliminary Screening

The five conceptual locations shown in Figure 4 were distributed to the project partner agencies to share 

with their respective staff for preliminary feedback. The intent was to screen out any concepts unlikely to 

be implemented due to “red flags,” such as whether the concept would make progress toward addressing

the project purpose or whether the agencies have other jurisdictional concerns. The feedback aided the 
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY NOVEMBER 2022

DOG MOUNTAIN CONCEPT REFINEMENT REPORT 14

project team in determining whether any deviation of the concept from the project purpose was 

substantial enough to remove the concept from further consideration or warrant refinement before more 

detailed analyses are completed. 

Figure 5 summarizes the preliminary screening results and Table 3 summarizes the detailed feedback, 

including recommendations for further consideration of specific concepts/conceptual locations in the 

“Outcome” column. 

Figure 5. Dog Mountain Trailhead Initial Conceptual Locations Screening Outcome S
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DOG MOUNTAIN CONCEPT REFINEMENT REPORT 15

Table 3. Concept Refinement: Preliminary Screening Feedback

Conceptual

Location Feedback Outcome

1. Grant Lake • RIC 3; USFS property

• Biology: Potential sensitive species habitat

• Hydrology: Need to confirm pond and wetland locations (there 

are regulations for development within water resource buffer

areas)

• Visual: 

• Visible from multiple KVAs in the foreground, middle

ground, and background

• If this concept is selected, some potential mitigation 

could include the restoration of the existing parking area 

to a natural appearance

Further refinement 

needed

2. Mountain 

Glade West

• RICs: North of road: RICs 1, 2, and 3; South of road: RICs 2 and

3, and USFS property

• Near private dwellings

• Biology: Significant, unmitigable natural resources concerns

• Hydrology: Close to ponds 

• Visual: Less visible of the five conceptual locations from KVAs

Remove from further 

consideration; 

unmitigable natural 

resources concerns

3. Mountain 

Glade East

• RICs: North of road: RIC 1; South of road: RIC 3 and Friends of 

the Gorge property

• Mountain Glade Rd needs improvements to serve new users

• Biology: Significant, unmitigable natural resources concerns

• Hydrology: Close to large pond 

• Visual: Less visible of the five conceptual locations from KVAs

Remove from further 

consideration; 

unmitigable natural 

resources concerns

4. Maintenance 

Yard

• RIC 3; WSDOT property

• Would require crossing of SR 14 and is adjacent to SR 14, which 

would not be a significant improvement over the current 

parking situation

• WSDOT uses this resource for its operations

Remove from further 

consideration; does 

not satisfy project 

goals.

5. Existing

Trailhead

• RICs 1, 2, and 4; BNSF, WSDOT, and USFS property

• Previous study noted concerns for potential hazardous 

materials. Ground penetrating radar analysis conducted in 

2022 did not flag any underground storage tanks.

• Visual:

o Scenic Standard: Not Visually Evident (does not currently 

meet this standard)

o Visible from multiple KVAs in the foreground, middle

ground, and background

Remove from further 

consideration; 

landowner/RIC 

concerns and does not 

satisfy project goals.
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DOG MOUNTAIN CONCEPT REFINEMENT REPORT 16

USFS Interdisciplinary Team Site Visit

As a follow-up to the concerns expressed during the preliminary screening, the project team organized a 

site visit on Tuesday, July 27, 2021, with USFS natural resource and recreation staff to further vet potential 

site locations in the area west and north of Grant Lake, as shown in Figure 6. The findings of this site visit 

are summarized below, and the detailed notes are provided in Attachment A. 

Reviewed the preliminary conceptual locations:

• Mountain Glade West: Not desirable due to natural resource concerns – mitigation not feasible.

• Mountain Glade East: Not desirable due to natural resource concerns – mitigation not feasible.

• Maintenance Yard: Not desirable because of distance from trail and the likelihood of similar 

safety concerns (pedestrians and SR 14) as existing, and because WSDOT would like to keep its 

maintenance yard.

• Grant Lake: KVA concerns, but with opportunities for refinement. This site visit explores possible 

options.

• Existing: Congestion amplifies existing safety concerns (sight distance, uncontrolled access, 

proximity to SR 14). Spans three different RICs and three different landowners. 

Figure 6. July 27, 2021, Site Visit Route

Note: Locations A, B, C and D were evaluated during the site visit as potential locations for Dog Mountain 

Trailhead parking lot relocation
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DOG MOUNTAIN CONCEPT REFINEMENT REPORT 17

Site visit notes:

• Reminder that the impacts to the KVAs need to imagine the landscape as if there were no 

vegetation. 

• There are seasonal sag ponds in the area. A parking lot or trail within 100 feet of a pond 

requires a mitigation plan. 

• Need to consider direct connection between potential parking lot and trailhead. In addition 

to the actual distance, the users need to feel like they are close. 

o The location near Grant Lake is closer to the existing trailhead and provides a view 

of Dog Mountain (helpful for encouraging people to use the new trailhead).

• Oak canopy (particularly on the site farther west) could limit the size of the parking lot.

o Development potential/space at the site would be limited (particularly by the oak 

drip lines).

• Layout work needed in order to determine best place to cross the creek (first) and then can 

determine the trail route from proposed parking lot.

Next Steps

• DEA to draft conceptual drawings considering the input from the site visit in combination 

with LiDAR topographic mapping. 

Refined Conceptual Parking Relocation Sites

The project team considered the feedback from the preliminary screening and USFS interdisciplinary team 

site visit to refine potential conceptual parking relocation sites near Grant Lake. The project team also 

reconsidered keeping the existing trailhead in its current location, however the team determined that 

even with improvements to the existing parking lot, it would not meet the purpose and need.

The relocated Dog Mountain parking lot will need to accommodate year-round recreational users, such 

as hikers. To meet the needs of the current and projected usage, the parking lot should account for the 

following features:

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

avoid site overcrowding

• Capability of accommodating a transit shuttle

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

Utilities are not required at parking lots.

Conceptual Layouts and Planning-Level Cost Estimates

The Consultant team prepared two unique conceptual layouts to illustrate possible trailhead and parking 

configurations near Grant Lake. The layouts are meant to serve as preliminary plans that will inform future 

project development in the final Dog Mountain parking lot and trailhead design. Both of the conceptual 

layouts provide the maximum 75 parking stalls that are allowed under the CRGNSA Management Plan 

standards for RIC 3, assuming enhanced mitigation. Both layouts also assume that vault toilets and space 

to accommodate a shuttle bus are provided. The distinguishing features of each conceptual layout are 

summarized in the following sections. 
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DOG MOUNTAIN CONCEPT REFINEMENT REPORT 18

Rough order of magnitude cost estimates were prepared based on the conceptual layouts. These 

planning-level cost estimates are preliminary and primarily aid in the comparison of the two conceptual 

layouts. The estimates can also help decision-makers make informed choices regarding the scope and 

resources required to pursue future phases of project implementation. The cost estimates do not include 

cost for rehabilitation or mitigation of the existing parking lot or costs for a pedestrian bridge and trail 

connection.

The project team reviewed the FHWA National Highway Construction Cost Index (NHCCI) during the 

finalization of this report and discovered highway construction costs increased by 20 percent between 

2021 and 2022.4 As such, the initial cost estimates prepared in fall of 2021 and shared with stakeholders

at that time were revised in fall of 2022 to reflect these rising construction costs. If the Dog Mountain

Trailhead relocation is pursued for further project development and implementation, more detailed cost 

estimates should be developed.

Comparable Project Work – Mirror Lake Trailhead Relocation Project

The Mirror Lake Trailhead Relocation Project (Mirror Lake), completed in 2018, has many similarities to 

the potential Dog Mountain Trailhead Relocation Project, both in scope and need. The primary purpose 

of the Mirror Lake project was relocating the existing trailhead and parking area that was adjacent to a 

state highway to improve safety for pedestrians and vehicles. Like the Dog Mountain Trailhead, USFS and 

WFL were project partners.

The costs for preliminary engineering and construction of the Mirror Lake Project were referenced for 

comparison when developing the cost estimates for the two Dog Mountain conceptual layouts. 

Completed in 2017, the total cost of the preliminary engineering for Mirror Lake was $1,203,234. That 

same year, the construction bid for the project was $5,460,018.

Concept 1: NW Grant Lake Dispersed

Figure 7 depicts Concept 1, NW Grant Lake Dispersed. The distinguishing feature of Concept 1 is that the 

northern parking lot minimizes the distance to the existing trail system.

4 National Highway Construction Cost Index: https://www.fhwa.dot.gov/policy/otps/nhcci/
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DOG MOUNTAIN CONCEPT REFINEMENT REPORT 19

Figure 7. Concept 1: NW Grant Lake Dispersed
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DOG MOUNTAIN CONCEPT REFINEMENT REPORT 20

The preliminary, rough order-of-magnitude cost estimate for Concept 1 ranges from $2.3 million to $3

million, depending on design features, and includes a 50 percent contingency for construction costs (2022

dollars). If design, project management, and construction engineering design support is needed, the 

estimate increases to a total of approximately $3.2 million to $4.1 million.

Concept 2: NW Grant Lake Compact

Figure 8 depicts Concept 2, NW Grant Lake Compact. The distinguishing feature of Concept 2 is that the 

distance between the north and south lots is minimized in order to reduce the overall footprint and limit 

the extents of new road pavement.

The preliminary, rough order-of-magnitude cost estimate for Concept 2 ranges from $1.9 million to $2.5

million, depending on design features, and includes a 50 percent contingency for construction costs (2022

dollars). If design, project management, and construction engineering design support is needed, the 

estimate increases to a total of approximately $2.7 million to $3.6 million.
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DOG MOUNTAIN CONCEPT REFINEMENT REPORT 21

Figure 8. Concept 2: NW Grant Lake Compact
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DOG MOUNTAIN CONCEPT REFINEMENT REPORT 22

Natural Resource Impacts

The conceptual layouts were developed based on information available through desktop studies and two 

site visits. If concepts are advanced 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. 

Biological Considerations

The October 2018 MOU between USFS/WDFW (referred to in this section as “the Agencies”) specifically 

covers the Collins/Bergen WPT Area (C/B Area), which lies west of the proposed location for the relocated 

trailhead and parking lot. However, the Agencies have previously raised concerns related to WPT in the 

vicinity of the proposed trailhead and parking improvements. Any parking lot/trailhead designs will need 

to take the WPT into account. 

The following four points from the MOU are most relevant to the proposed trailhead relocation and are 

paraphrased in some cases for brevity. 

1. Identify management objectives that will lead to the maintenance and enhancement of WPT 

habitats in the C/B Area. Such objectives could include: “promote expansion of WPT populations” 

or “provide safe movement between habitats.” These management objectives have likely already 

been identified by the Agencies. Follow-up with the Agencies should be conducted, and a list of 

the management objectives developed in response to the October 2018 MOU should be obtained 

from the Agencies, if it has not already been obtained. 

2. Coordinate design with all other management programs. Cultural and recreational programs 

may have very different goals than those assigned to WPT habitats in the C/B Area. Coordination 

with these programs should be undertaken so that the needs of all relevant management 

programs are considered in the trailhead and parking lot relocation design. 

3. Supportive documentation should be used to guide actions. The Agencies may wish to provide 

input regarding which management documents represent the most recent and most relevant 

guidance. However, these documents are likely to include the “Washington State Recovery Plan 

for the Western Pond Turtle” (1999) as well as more recent documents, some of which may be 

currently unpublished. Oregon has a wealth of documentation resources, such as “Conservation 

Assessment of the Western Pond Turtle in Oregon” (2009), and “Guidance for Conserving 

Oregon’s Native Turtles including Best Management Practices” (2015).

4. Make available to the USFS expertise necessary to accomplish objectives for the benefit of WPT 

management. This part of the MOU appears to imply that WDFW is amenable to working with 

other partners where expertise is needed, including work with consultants or designers who are 

familiar with WPT habitat needs or survey techniques.

Although not noted directly in the MOU, the project team biologist had the following observations that

may be useful in considering potential mitigation options related to the WPT:

• Roadway improvements related to the new trailhead access and parking areas are likely to fall 

within the WPT migratory route between Grant Lake and potential nesting habitats. Individuals 

may move between these habitats seasonally or more frequently. Therefore, road crossing 

features such as wildlife-friendly culverts or larger undercrossings may need to be incorporated 

into the road design. Direct coordination with the Agencies to provide design input will be critical. 
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY NOVEMBER 2022

DOG MOUNTAIN CONCEPT REFINEMENT REPORT 23

• The MOU mentions noxious weeds and oak forest, both of which will likely need to be mapped 

and managed in design of the facilities. These measures, along with the removal of non-native 

fish and amphibian predators of WPT identified in the MOU (e.g., carp and bullfrogs), could 

represent viable mitigation opportunities for project impacts.

Visual Considerations

As noted previously, the most likely KVAs of relevance to the Dog Mountain Trailhead Focus Area include:

• Dog Mountain Trail

• Washington State Route 14

• Interstate 84

The DEA project team developed preliminary conceptual visualizations of Concept 1 and Concept 2 from 

the Dog Mountain Trail Summit. 

• Figure 9 depicts the view under existing (No Build) conditions, facing southwest toward Grant 

Lake from the Dog Mountain Trail Summit. 

• Figure 10 depicts Concept 1 from the same viewpoint. The southern parking lot is just visible, 

because the ridge hides most of the parking lot footprint. 

• Figure 11 depicts Concept 2, which is even less visible than Concept 1. 

At this stage of conceptual design, the DEA team does not expect the location of the parking lot to be 

visible in a conceptual simulation from Interstate 84 (I-84) or SR 14, primarily because the terrain will 

obscure views of the access road and the parking area. However, the parking lot may be visible from the 

Historic Columbia River Highway State Trail (Oregon). A refined design that includes proposed grading 

activities and more details about the construction activities, as well as a proper site visit to the location to 

determine more accurate field conditions, would need to be completed in order to conduct a proper “leaf 

off” analysis,5 because those activities and changes (tree removal, grading slopes, etc.) may be visible from 

SR 14, even if the parking lot itself is not.

Figure 12 (page 27) provides visualizations based on the current preliminary design information, showing

potential viewpoints from SR 14 and the conceptual location design (Concept 2 for this example). As 

shown in Figure 10, the current landscape shields much of the proposed parking lot and trailhead location. 

Visualizations based on a more refined design, once it is prepared, may show otherwise. 

5

“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 beneficial 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-difference-between-leaf-on-and-leaf-off-imagery).”
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DOG MOUNTAIN CONCEPT REFINEMENT REPORT 24

Figure 9. Existing Conditions Preliminary Visualization from Dog Mountain Trail Summit
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DOG MOUNTAIN CONCEPT REFINEMENT REPORT 25

Figure 10. Concept 1 Preliminary Visualization from Dog Mountain Trail Summit
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DOG MOUNTAIN CONCEPT REFINEMENT REPORT 26

Figure 11. Concept 2 Preliminary Visualization from Dog Mountain Trail Summit
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DOG MOUNTAIN CONCEPT REFINEMENT REPORT 27

Figure 12. Preliminary Visualization from SR 14

View 2A

View 2B View 2C 

View 2D View 2E 

View 2A

View 2B

View 2C

View 2D

View 2E
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DOG MOUNTAIN CONCEPT REFINEMENT REPORT 28

Trails

Construction of a new, or relocated, trail connection is a key component for consideration during the 

planning process to relocate the Dog Mountain Trailhead parking lot. The specific features of trail 

construction to be considered are:

• Provide link between trailhead and existing trail

• Maintain trail level of difficulty (length, elevation, etc.)

• Provide for year‐round availability

• Consider funding: Other funds may be needed to construct trails

As is done for the parking lot relocation discussion above, preliminary trail alignments and connections 

have been developed to aid in the evaluation; however, further refinement will be necessary during the 

detailed design process. A pedestrian bridge will likely be necessary to cross the seasonal creek that flows 

into Grant Lake. 

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. As 

described in the Problem Statement, projected trail use is likely to continue its upward trend and

managing congestion at the current Dog Mountain Trailhead parking lot under the existing configuration 

will remain a challenge. 

The trailhead, while “grandfathered” in under the CRGNSA Management Plan, does not meet the plan’s 

current scenic quality standards or recreation site intensity class standards. Significant physical changes 

to the parking lot would need to be designed to meet CRGNSA guidelines and previous efforts to improve 

and enhance the existing parking lot were limited by complexities with the underlying land ownership and 

preliminary results from an environmental study.

The next phase in project development will require further discussions with 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 4.

Table 4. Interim Strategies for Consideration at Existing Dog Mountain Trailhead

Strategy Description Considerations

Real-time 

parking 

availability

• Use closed-circuit cameras to monitor 

visitor demand.

• The cameras could monitor traffic 

congestion and parking lot capacity. 

• WSDOT can also use cameras to view 

weather and road conditions that affect 

travel speeds, potentially resulting in 

slowing.

• 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/fiber) and communications (wireless, 

cellular, hardwire/fiber, 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 additional maintenance costs. 
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DOG MOUNTAIN CONCEPT REFINEMENT REPORT 29

Strategy Description Considerations

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.

• Permits are required on weekends and may be extended 

to Fridays and holidays during peak season (summer). 

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 

approximately 300 feet east of the Dog 

Mountain Trailhead. 

• Risk of restricting parking is that visitors may find 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 buffered 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 additional funding for increased capital 

and operating costs.

• Transit vehicle size may be limited by existing parking lot 

geometry.

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 trial 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.

6 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 area are summarized in Table 5.

6 WA PFH 185-1 (7) SR 14, Dog Mountain Trailhead Enhancement Project Public Notice, WFLHD FHWA, May 20, 2008.
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DOG MOUNTAIN CONCEPT REFINEMENT REPORT 30

Table 5. Long-Term Mitigation Considerations at Existing Dog Mountain Trailhead

Strategy Description Considerations

Restore

parking lot to 

natural 

conditions

• Abandon existing parking lot and 

trailhead and restore to natural 

conditions.

• Would require that relocated parking lot be 

operational.

• Could be a form of mitigation for the relocated 

parking lot.

• Design would need to deter visitors from 

attempting to access the existing trail from the 

abandoned trailhead location.

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 through limited entry permits.

•

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. 

• Could consider wall that mimics historical rock wall 

in CRGNSA, earth berm, or aesthetic barrier.

• Would need to be designed and placed to be 

consistent with CRGNSA Scenic Guidelines.

Relocated Parking Lot Access

The concept refinement process for the Dog Mountain Trailhead relocation includes considering

improvements to SR 14 in the vicinity of the trailhead parking lot. These improvements would address 

safety issues related to accessing SR 14 and the parking lot, including a review of sight distance, left-turn 

lane warrants, and right-turn lane warrants, as discussed in the following sections. Assumptions for the 

relocated parking lot use and traffic counts collected in 2021 provide the basis for the information 

presented below. Only bidirectional traffic counts of SR 14 on either side of the existing parking lot are 

used in the assessment summarized below, so data on turns into the parking lot are estimates. This 

analysis of parking lot access should be revisited during design refinement and should include turnmovement counts during the peak use. 

LEFT-TURN WARRANT ANALYSIS

The WSDOT Design Manual, Section 1310.03(2)(a), provides guidelines for consideration in installing a

one-way left-turn lane. The following discussion explores each of these guidelines as it applies to the 

analysis for the relocated SR 14 Dog Mountain Trailhead.

► A traffic analysis indicates congestion reduction with a left-turn lane. On two-lane highways, 

use Exhibit 1310-7, based on total traffic volume (DHV) for both directions and percent left-turn 

traffic, to determine whether further investigation is needed.

The posted speed is 55 miles per hour (mph), and traffic counts were taken on Saturday, July 17, 

2021. This date falls outside the time when permit reservations are required for trail use and

represents a summer season scenario for turns into the trailhead parking lot. The traffic data was 

used along with Exhibit 1310-8 to determine whether a left-turn lane would be warranted based 
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY NOVEMBER 2022

DOG MOUNTAIN CONCEPT REFINEMENT REPORT 31

on capacity. Assuming a conservative estimated left-turn volume of 50 vehicles per hour, the leftturn lane is not warranted based on the guidelines indicated in Exhibit 1310-7.

► A study indicates crash reduction with a left-turn lane.

Current accident data (for the five-year period between 2015 and 2019) was collected from 

WSDOT, as discussed above (see Table 2 and Figure 2). Two crashes were reported between MP 

52.8 and MP 53.3 on SR 14. The crash data does not preclude a left-turn lane; however, the 

collision types that occurred were caused by a rock fall and an equipment failure, indicating that

a left-turn lane would likely not have prevented the collisions.

► Restrictive geometrics require left-turning vehicles to slow greatly below the speed of the 

through traffic.

The geometrics of the proposed entrance are not considered restrictive. However, due to the 

relatively high speed of through traffic on SR 14, it is expected that left-turning vehicles will slow 

substantially below the speed of through traffic.

► There is less than decision sight distance for traffic approaching a vehicle stopped at the

intersection to make a left turn.

A formal sight distance study was not conducted at this conceptual phase of planning; however,

the following estimates of sight distance were prepared based on photos taken during a site visit

and consultation of online webmapping tools: 

• Available sight distance from the west to conceptual parking lot access = ~800 feet

• Available sight distance from the east to conceptual parking lot access = >1,000 feet

There appears to be adequate decision sight distance for a left-turn lane on SR 14 at the 

conceptual parking lot access. 

RIGHT-TURN LANE WARRANTS

The WSDOT Design Manual, Section 1310(3), provides guidelines for consideration of installing right-turn 

lanes. The following discussion explores each of these guidelines as it applies to the analysis for the 

relocated SR 14 Dog Mountain Trailhead.

► For two-lane roadways and for multilane roadways with a posted speed of 45 mph or above, 

when recommended by Exhibit 1310-19.

An analysis of the traffic volumes on SR 14 from Saturday, July 17, 2021, and assuming a 

conservative estimated right-turn volume of 50 vehicles per hour, a right-turn lane is not 

warranted based on traffic volumes.

► A crash study indicates an overall crash reduction with a right-turn lane.

Current accident data (for the five-year period between 2015 and 2019) was collected from 

WSDOT, as discussed above (see Table 2 and Figure 2). Two crashes were reported between MP 

52.8 and MP 53.3 on SR 14. The crash data does not indicate that a right-turn lane would provide 

an overall crash reduction.

► The presence of pedestrians requires right-turning vehicles to stop.

Low pedestrian activity is expected on SR 14.

► Restrictive geometrics require right-turning vehicles to slow greatly below the speed of the 

through traffic.
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY NOVEMBER 2022

DOG MOUNTAIN CONCEPT REFINEMENT REPORT 32

The geometrics of the proposed entrance are not considered restrictive. However, due to the 

relatively high speed of through traffic on SR 14, it is expected that right-turning vehicles will slow 

substantially below the speed of through traffic.

► There is less than decision sight distance for traffic approaching the intersection.

A formal sight distance study was not conducted at this conceptual phase of planning; however,

the following estimate of sight distance was prepared based on photos taken during a site visit 

and consultation of online webmapping tools: 

• Available sight distance from the east to conceptual parking lot access = >1,000 feet

There appears to be adequate decision sight distance for a right-turn lane on SR 14 at the 

conceptual parking lot access. 

Signing should be added on SR 14 to prohibit parking on the SR 14 shoulders adjacent to the trailhead 

parking lot. This measure will ensure that adequate sight distance is available and will improve safety on 

SR 14.
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY NOVEMBER 2022

DOG MOUNTAIN CONCEPT REFINEMENT REPORT 33

NEXT STEPS: STUDIES AND SITE INVESTIGATIONS NEEDED

To develop the project and move into the NEPA analysis phase, the following studies and site 

investigations are recommended:

Conceptual Design Package

The next step in developing this project is to develop a set of Conceptual Level (30 percent Design) Plans 

to clearly identify the project footprint and identify the boundaries of the environmental studies needed 

for the project. This work would include:

• A Traffic Study to determine proposed circulation patterns and travel demand forecasting at the 

intersection of SR 14 and the proposed trailhead access road to confirm turn lane warrants

• Field Survey of proposed project footprint

• Horizontal and Vertical Alignment and Typical Section of new access road, parking lot, and 

highway intersection

• Type, Size, and Location Report for project structures

• A preliminary Geotechnical Report

• Refined Construction Cost Estimate based on 30 percent Design

• Environmental Site Investigations and Identified Permitting Needs (potentially to be completed 

by USFS

• Delineation of wetlands that could be affected by the project

• Survey and assessment of significant trees within the project footprint

• Work session between the appropriate land management agencies and design team to refine 

concept location based on additional studies and mitigation needs

Key Issues to be Resolved

During the next phase of the project, several decisions need to be made, including but not limited to:

• The fate of the existing parking lot needs further evaluation.

• Design criteria must be established before beginning design.

Also, since part of the existing Dog Mountain Trailhead parking area is on a BNSF easement, coordination 

with the railroad should be initiated early in project development. 
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY NOVEMBER 2022

DOG MOUNTAIN CONCEPT REFINEMENT REPORT 34

REFERENCES

Columbia River Gorge Commission (CRGC) and USDA Forest Service (USFS). 2016. Management Plan 

for the Columbia River Gorge National Scenic Area as amended through August 2016.

_____. 2020. Draft Management Plan for the Columbia River Gorge National Scenic Area as amended 

through August 2020.

U.S. Army Corps of Engineers (USACE). 1987. USACE Wetland Delineation Manual, Environmental 

Laboratory, 1987.

_____. 2010. Regional Supplement to the Corps of Engineers Wetland Delineation Manual: Western 

Mountains, Valleys, and Coast Region.

U.S. Fish and Wildlife Service (USFWS). 2020a. National Wetlands Inventory. Accessed September 16, 

2020 at: https://www.fws.gov/wetlands/.

_____. 2020b. Information on federally listed endangered, threatened, and special-status species 

obtained from USFWS Information for Planning and Consultation (IPaC) online mapping tool. 

Accessed September 14, 2020 at: https://ecos.fws.gov/ipac/.
Appendix C

Public Involvement Report
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SR 14 AND DOG MOUNTAIN

CONGESTION AND SAFETY PLAN

Public Involvement Summary –

June 2020 – March 2022

INTRODUCTION

The Federal Highway Administration (FHWA) is partnering with the United States Forest Service (USFS) 

and the Washington State Department of Transportation (WSDOT) to develop a congestion and safety 

plan for Washington State Route 14 (SR 14) and the Dog Mountain Trailhead. As part of developing this 

plan, the agencies conducted a public involvement process from June 2020 to March 2022 to inform and

gain input from stakeholders in the project area. 

The public involvement process included:

• Sending materials to resident stakeholders along the SR 14 corridor

• Creating a project website and three additional online open houses to share information and 

request public comment via surveys

• Hosting virtual stakeholder and community meetings over Zoom

Though initially planned for in-person stakeholder events, the outreach process was moved to virtual 

events due to COVID-19. 

SUMMARY OF VIRTUAL PUBLIC INVOLVEMENT

Website and online open house #1

In January 2021, the project team created a project website (https://sr14study.participate.online/) to 

host information about the SR 14 and Dog Mountain Congestion and Safety Plan and include resources 

and materials for interested stakeholders and community members to view. Information presented in 

the online open house included: 

• A background and overview of the Study, explaining the study’s purpose for the SR 14 corridor 

and Dog Mountain Trailhead

• Vision and goals of the study for SR 14 and Dog Mountain

• Plan frameworks and important factors the project teams considered while developing the 

study

• A map of the study area (fig. 1)

• A timeframe of the public involvement and planning process

• An overview of existing conditions that discusses the environmental setting of the study area, 

along with existing safety and congestion concerns.
Figure 1 - Map of the study area.

As part of the creation of the website, the project teams also conducted a virtual online open house 

with an accompanying survey to educate the public about the existing conditions of the project and get 

their feedback on needs and deficiencies in the SR 14 corridor. 

The online open house and survey was open from January 8, 2021 through February 1, 2021 and asked 

participants about their travel patterns, goals and concerns for the project area. The survey received 42 

responses. The survey consisted of an Alchemer survey and Social Pinpoint map, wherein participants 

could share their thoughts via a map that allowed them to specify the location of their feedback.

Key takeaways from the survey and Social Pinpoint included: 

SR 14 Travel Patterns and Concerns

• Most respondents (55%) use the corridor for recreation. The second most common use is 

commuting (38%).

• Respondents thought the most important goals of the Safety and Congestion Plan were 

improving safety, protecting resources and managing congestion. 

• Respondents noted a variety of safety concerns in the corridor including congestion, unsafe 

passing, unsafe/illegal parking, rockfall, large trucks and unsafe speeds.

• The sites in the corridor that respondents visit most are Beacon Rock, Cape Horn, Dog Mountain 

and Catherine Creek.

• Respondents provided several specific suggestions to improving safety and congestion in the 

corridor including suggestions on parking infrastructure and alternative transportation. These 

are discussed below in the detailed question summary.

Dog Mountain Trail Access and Congestion

• Respondents are concerned with both parking congestion and hiker congestion at Dog 

Mountain Trail. They suggested several potential solutions including adding parking in various 
locations near the hike, expanding the permit system, expanding shuttle access and/or 

encouraging visitors to do other hikes.

Online open house #2 and community conversations

In fall 2021, the agencies conducted a second online open house and accompanying survey to share with 

the public an overview of the types of strategies for consideration as part of the plan study and to 

gather feedback and concerns on the proposed strategies along the project recreation areas. 

The online open house and survey was open from October 11, 2021 through November 1, 2021. The 

survey received 36 survey responses. The survey consisted of an Alchemer survey and Social Pinpoint 

map, wherein participants could share their thoughts via a map that allowed them to specify the 

location of their feedback.

The project teams also hosted two virtual “Community Conversations” Zoom public meetings on 

October 14 and October 20, 2021. These public meetings invited stakeholders to learn more about the 

status of the project and ask direct questions to the project team. There were 16 unique attendees 

across both dates.

Key takeaways from the survey, social pinpoint and community conversations included: 

SR 14 Travel Patterns and Concerns

• Most respondents had the highest concern for safety for the Klickitat Spit/Lyle Trailhead. The 

second highest safety concern was about the Coyote Wall Trailhead. 

• Respondents noted a variety of safety concerns in the corridor including unsafe speed and 

unsafe/illegal parking along the corridor.

• Respondents provided several specific suggestions for improving safety and congestion in the 

corridor including suggestions on parking infrastructure and alternative access to recreation

areas. These are discussed below in the detailed question summary.

Dog Mountain Trail Access and Congestion

• Respondents are concerned with both parking congestion and hiker congestion at Dog 

Mountain Trail. 

Online open house #3 

In late January and February of 2022, the agencies conducted a third and final online open house and 

accompanying survey to share with the public a copy of the SR 14 and Dog Mountain Trailhead Study 

Draft report and an opportunity to provide public comment. Visitors could comment via a survey on five 

chapters of the report (Context, Coordination, Needs and Issues, Strategies and Implementations). 

The online open house and survey was open from January 28, 2022 through February 4, 2022. The 

survey received 11 responses.

Key takeaways from the survey include:

• Additional contextual information and reference to other local and regional transportation plans 

would add value

• A need for greater focus on rural areas in the project corridor
SUMMARY OF EMAIL/STAKEHOLDER COMMUNICATIONS

The project team sent out three stakeholder emails to about 100 recipients on the launch dates of the 

online open houses to promote the survey. These were sent on January 8, 2021, October 11, 2021, and 

January 28, 2022. 

Press releases with information to promote the online open houses were also sent to local news radio 

stations and news outlets along the SR 14 corridor. 

SUMMARY OF PRINTED MATERIALS

The project team coordinated mailing for two project postcards to send to stakeholders along the SR 14 

corridor in promotion of the January 2021 and January 2022 online open houses to around 1,000 

addresses each postcard (see fig. 2).

Figure 2 Front side of the January 2022 postcard mailed to stakeholders.
Appendix D

Funding Sources
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D-1

Potential Funding Mechanisms

Federal Funding Sources

Federal Lands Access Program

The Federal Lands Access Program (FLAP) was 

established in 23 United States Code (USC) 204 to improve transportation facilities that provide access to, 

are adjacent to, or are located within federal lands. The program supplements state and local resources 

for public roads, transit systems, and other transportation facilities, with an emphasis on high-use 

recreation sites and economic generators. The program is designed to provide flexibility for a wide range 

of transportation projects.

The program is funded by contract authority from the Highway Trust Fund and subject to obligation 

imitation. Funds are allocated among the states using a statutory formula based on road mileage, number 

of bridges, land area, and visitation.

FHWA Western Federal Lands issues a Request for Proposals every two years and agencies may request 

$100,000 or more in funding. A minimum local match of 13.5 percent is required, although a higher local 

match amount typically results in a higher-ranked application. The Federal Land Management Agency 

(FLMA) must support and sign the application.

Federal Lands Transportation Program

The Federal Lands Transportation Program (FLTP) was established in 23 USC 203 to improve the 

transportation infrastructure owned and maintained by the following FLMAs: National Park Service (NPS), 

Bureau of Land Management (BLM), Bureau of Reclamation (BOR), USFWS, USFS, U.S. Army Corps of 

Engineers, and independent federal agencies with land and natural resource management responsibilities.

The FLMAs have considerable responsibility and latitude for managing their program within the FLTP. FHWA, 

however, is ultimately responsible for ensuring the program is administered according to the statutory and 

implementing regulations for Title 23 USC, including conformity to highway planning, design, construction, 

maintenance, and safety standards. The use of FLTP funds does not affect the overall responsibility for 

construction, maintenance, and operations of the facilities. That responsibility continues to lie with the 

owner of the facility.

Federal Lands Recreation Enhancement Act

The Federal Lands Recreation Enhancement Act (FLREA) authorizes five agencies to charge and collect 

recreation fees on federal recreational lands and waters. The five agencies are BOR, BLM, USFWS, NPS, 

and USFS. The agencies retain the collected fees primarily for operation and maintenance of sites and onsite improvements.

The FLREA authorizes agencies to charge different kinds of fees at recreation sites, outlines criteria for 

establishing fees, and prohibits fees for certain activities or services. USFS can charge “standard amenity 

fees” in areas or circumstances where a certain level of services or facilities are available.

FLREA also authorizes all five agencies to charge an “expanded amenity fee” for specialized facilities and

services, and special recreation permit fees for specialized uses, such as group activities.

Great American Outdoors Act/Land and Water Conservation Fund

The Great American Outdoors Act (GAOA) was signed into law in 2020 and is intended to fund up to $1.9 

billion annually (for five years from energy development) for the National Parks and Public Land Legacy 

Restoration Fund to provide needed maintenance for critical facilities and infrastructure in our national 

parks, forests, wildlife refuges, recreation areas, and American Indian schools. 

A p p e n d i x D
D-2

Nationally Significant Federal Lands and Tribal Projects

The Nationally Significant Federal Lands and Tribal Projects (NSFLTP) program provides federal funding for 

the construction, reconstruction, or rehabilitation of transportation projects that provide access to or are 

located on federal or tribal lands. Under the NSFLTP, the federal share of a project can be up to 90 percent 

and can be used to improve the condition of a critical transportation facility. Large-scale projects with 

estimated construction costs of $50 million or more are given priority consideration for selection, but the 

program accepts projects with estimated construction costs of at least $25 million.

Emergency Relief and Federally Owned Roads

The Emergency Relief and Federally Owned Roads (ERFO) 

program was established to assist federal agencies with the 

repair or reconstruction of tribal transportation facilities, 

federal lands transportation facilities, and other federally owned 

roads that are open to public travel, which are found to have 

suffered serious damage by a natural disaster over a wide area 

or by a catastrophic failure. The intent of the ERFO program 

is to pay the unusually heavy expenses for the repair and reconstruction of eligible facilities. The ERFO 

program is not intended to cover all repair costs but rather to supplement FLMA repair programs.

Rebuilding American Infrastructure with Sustainability and Equity

The Rebuilding American Infrastructure with Sustainability and Equity (RAISE) Transportation Discretionary

Grant program provides a unique opportunity for the U.S. Department of Transportation (USDOT) to invest 

in road, rail, transit, and port projects that promise to achieve national objectives. The RAISE program 

enables USDOT to examine projects on their merits to help ensure that taxpayers are getting the highest 

value for every dollar invested. The eligibility requirements of RAISE allow project sponsors at the state 

and local levels to obtain funding for multimodal, multijurisdictional projects that are more difficult to 

support through traditional USDOT programs.

Surface Transportation Program

The Surface Transportation Program (STP) continues to be the most flexible of all the highway programs 

and provides the most financial support to local agencies. Projects eligible for STP funding include highway 

and bridge construction and repair; transit capital projects; and bicycle, pedestrian, and recreational 

trails. WSDOT allocates STP funds to Metropolitan Planning Organizations and County Lead Agencies for 

prioritizing and selecting projects that align with their regional priorities and involve all entities eligible to 

participate in a public process.

Public Transportation

This study defers to the Gorge Transit Strategy to highlight the various 

federal funding sources to improve public transportation services in the 

Gorge.

A p p e n d i x D

The GAOA will also use royalties from offshore oil and natural gas operations to permanently fund the 

Land and Water Conservation Fund (LWCF) to a level of $900 million a year to invest in conservation 

and recreation opportunities throughout the country. The LWCF program is divided into the “State Side,” 

which provides grants to state and local governments, and the “Federal Side,” which is used to acquire 

lands, waters, and interests therein necessary to achieve the natural, cultural, wildlife, and recreation 

management objectives of federal land management agencies.
D-3

State Funding Sources

State revenue comes from numerous taxes, fees, permits, tolls, and other revenues. Washington’s fuel 

taxes (gasoline, diesel, biodiesel, etc.) comprise the largest share of all transportation revenue in the state. 

Licenses, permits, and fee revenues comprise the second largest share of all transportation revenues. This 

revenue is related to motor vehicle registrations, weight fees, license plate replacement fees, title fees, 

and dealer permits. The remaining revenue consists of ferry fares, toll revenue, and driver-related and 

other transportation-related revenue.

State Fuel Tax

The Washington state fuel tax is the single biggest source of transportation revenue for state and local 

governments. Currently the state fuel tax is set by the legislature at 49.4 cents per gallon and generates 

approximately $3 billion per biennium.

A p p e n d i x D

Highway Construction Bonds

Highway Construction Bonds are an important 

source of funding for transportation capital projects 

in Washington and are authorized in Chapter 47.10 

Revised Code of Washington. Debt service is the 

periodic payment of principal, interest, insurance, 

and covenants on a bond. Transportation bonds are 

typically issued as 25-year or 30-year debt. Bonds 

are backed by future fuel tax, license, permits, and

fee revenue and/or tolls, and the revenue must be 

collected for the entire 25- or 30-year debt period. 

The Washington State Treasurer is also authorized 

to refinance original issues of bonds if conditions

warrant this type of transaction. Refunding 

prior bond issues can reduce total debt service 

requirements and achieve budgetary savings over 

the remaining term of the bond.

Regional Mobility Grants

WSDOT manages the Regional Mobility Grant 

program for projects that improve connectivity 

between counties and regional population centers 

as well as to reduce transportation delay. For the 

2021-2023 biennium, over $82 million was made 

available by the Washington Legislature to fund 

Regional Mobility Grant projects statewide. The 

program includes four eligible project types: vehicle 

and equipment purchases, capital construction, 

operations, and transportation demand 

management. Applicants must provide matching 

funds as direct contributions of at least 20 percent 

of the total project cost. Direct contributions are 

cash or other assets that directly benefit the project 

and are fundamental to implementing the project.

Parking Management

Opportunities for parking management, including a coordinated, CRGNSA-wide paid parking system with 

season passes that consider discounts for locals and disadvantaged communities, should be a high priority 

for the Core Project Team. These opportunities include options for potential revenue generation through

paid parking and reservations. Parking management provides an effective tool for managing the corridor. 

Its ability to connect with technology and provide real-time information may be beneficial above and 

beyond potential revenue generation.

It is recommended that a more detailed parking management strategy be developed. Because it is more 

difficult to add fees years after new improvements are made, paid parking should be considered as new 

and expanded parking areas are developed. 

Because there are several variables to consider, further analysis is needed to explore the topic of parking 

management. The exploration of revenue options should consider how implementation of these options 

on the SR 14 corridor could impact other areas around the Gorge. Agencies should consider that fee 

structures can encourage or reward those who take alternative transportation to recreation sites, thereby 

reducing VMT and improving the environment. Equitable access should also be a critical component of the 

proposed program. Free or low-cost transit access is another way to offer equitable access when parking 

at the recreation site or areas closest to the recreation site are priced higher than transit.

Private Funding Sources and Alternatives
D-4

Pay for Success

The Pay for Success (PFS) model is a new way of financing public services to help agencies target limited 

dollars to achieve a positive, measurable outcome. Under the Pay for Success model, a government agency 

commits funds to pay for a specific outcome that is achieved within a given time frame. The financial capital 

to cover the operating costs of achieving the outcome is provided by independent investors. In return for 

accepting the risks of funding the project, the investors may expect a return on their investment if the 

project is successful. Payment of the committed funds by the government agency is contingent on the 

validated achievement of results. In this way, the PFS model shifts the burden of investment risk from the

government to private investors, effectively creating a social investment market where the government 

only pays for results.

Road Districts

Road districts are areas created by a petition of 

affected landowners that allow for the issuance of 

bonds for financing local transportation projects.

Private Donations

The private donation of money, property, or services 

to mitigate identified development impacts is 

the most common type of private transportation 

funding. Private donations are very effective in 

areas where financial conditions do not permit a 

local government to implement a transportation 

improvement itself.

Fee Collection Modifications – Revenue from Recreation, Permits, Events, etc.

User fees, or revenue from recreation facilities, are generally re-invested by the agency in fee site 

improvements. Further, agencies rarely operate across jurisdictions to share resources in management 

of recreational facilities. To break the barriers and work collaboratively to address challenges of shared 

facilities, such as parking, path systems, and transit, agencies need to shift to a partnership approach. This 

arrangement should foster collaborative operations and maintenance budgeting, sharing of revenue and 

expenses, sharing of resources, and monitoring of capacity and operating challenges.

The project partners must explore opportunities to keep revenue within the corridor for infrastructure 

preservation and annual operations, thus requiring agencies to jointly seek and commit to equitable rate

structures for all visitors, understand how a specific facility’s fees impact the system and move demand, 

and develop a corridor-wide approach to fees for shared resources and facilities. It is recognized that using 

funds across jurisdictions will at a minimum require legal agreements and may require legislative changes.

Although implementing this collaborative, corridor-wide approach is not a simple process, it is attainable 

within a partnership program. For example, California State Parks has entered into joint agreements by 

which a portion of a fee goes to state parks and a portion goes to transit operations. 

Such an agreement among the project partners should require the partnering agencies to study all 

current and proposed fee structures to determine the best corridor-wide funding approach for providing 

an excellent visitor travel experience, maintaining capacity at individual facilities, protecting natural and 

cultural resources, and covering the operating and maintenance costs of a shared corridor transportation 

system (i.e., parking, path, and transit). This approach may include new fees and structural changes, such 

as congestion pricing or reservation pricing, within the corridor and must consider equity for all visitors.

A p p e n d i x D

Conversations regarding revenue streams are never easy but are necessary to the success of implementing 

new strategies and providing a safe quality visitor experience. The SR 14 corridor is a special part of the 

Gorge. It can offer economic benefits to the local communities and to the region. Both the indirect value 

and the direct value created by visitors enjoying this corridor must be considered.

Further analysis can also explore the ability to limit parking through permitting systems and then issue 

permits to shuttles bus services that provide access from community hubs.
SR 14 AND DOG MOUNTAIN CONGESTION AND SAFETY STUDY

DECEMBER 2022