A deep economic downturn, passage of statewide initiatives, annexations, and rising transportation costs have all had significant impacts on King County's ability to preserve and maintain its unincorporated roadways. To better manage these challenges, the County has developed a new system for prioritizing road services by assigning them to service-level tiers.
Maintaining county roads on a tight budget
Property and gas taxes dedicated to county roads for 2012 are projected to drop by 10 percent from those collected just two years ago due to annexations, lower property values, declining gasoline sales, and the effect of voter initiatives.
Over the next four years, with more annexations and further declines in property and gas taxes, we expect the County Road Fund to shrink by another 13 percent. Over a six-year period, road revenues will have shrunk by 21 percent.
With this kind of drop-off in our funding, current service levels are not sustainable.
Guided by key recommendations in the Road Services Strategic Plan, the Road Services Division has developed a tiered service model that will set priorities for future road investment. In essence, this is a system of triage that will allow the County to direct the most resources to roads that are used by the most people.
Service tiers
The division has ranked each of nearly 1,600 miles of roadway into one of five tiers. Tier 1 roads will receive the most service, while Tier 5 roads will receive the least. The criteria we used to make tier assignments included traffic volume, projected lengths of detours, and whether the road provides sole access, is a lifeline route, or is important for transit or freight.
The tiered system will focus resources and guide decisions about where and in what order work will be provided. It will also direct budget programming, workforce planning, and deployment decisions to protect roads that serve the most users. Learn more.
Why funds are tight
The Road Fund is supported mostly by property taxes, through a separate roads levy paid by unincorporated area residents and capped by the state at $2.25 per thousand dollars of assessed value.
Under the state Growth Management Act, taxable urban properties in unincorporated areas of King County are being annexed into cities. This lets cities provide urban services like city streets and parks while the County focuses on regional services like transit and elections. But annexations also shrink the County’s tax base, and move roads and bridges into cities while residents of the unincorporated areas are still paying on the bonds that built or improved them.
Over the past three years, revenues from the roads levy have fallen more than one-third due to annexations and lower property values. Over the next five years, as annexations are completed, property owners in unincorporated areas will pay more than $29 million in debt service for work the County did on roads and bridges that are now in cities.
This means that more than half of the money that unincorporated residents pay on bonds for road projects goes to roads and bridges that are now in cities, and that 250,000 residents of unincorporated King County are paying for a road system used by about 2 million people.
Rural areas have a lower concentration of taxable properties than urban areas, and the value of rural properties is lower as well. The majority of bridges and road miles in King County will remain in rural areas after annexations.
Gas taxes are the Road Fund’s second largest source of revenue. These have taken hits from the recession and also from otherwise good developments like more fuel-efficient cars and less driving.
The result of these losses and annexations is that in 2012, the Road Fund will have $1.2 million per year less to pay for road maintenance and preservation than was available two years ago.
Construction costs are also straining the County’s budget. According to a July 2011 Washington State Department of Transportation report on construction trends, transportation material costs have nearly doubled over the past decade. Labor costs have also increased faster than the rate of inflation.
Did you know?
• More than 1 million daily trips are taken every day on the road system in unincorporated King County.
• The King County road system is an integral part of the regional economic engine, providing access for people, freight and goods.
• More than 250,000 people from local cities and neighboring counties use the King County unincorporated road network.
• For several County arterials, 50 percent or more of commuters are going to or from cities or other counties.
In response to the rising cost of maintaining and preserving the oldest road network in the state, the County has taken significant measures to be more efficient and productive.
The Road Services Division has downsized its organization across all levels and reduced its operating budget by $14.6 million, resulting in an agency that is nearly 18 percent smaller than a year ago. The division has also taken a number of steps to become more efficient. Learn more.
Seeking a funding solution
King County was involved with Governor Christine Gregoire's Connecting Washington Task Force, which worked on a statewide transportation financing package. King County Executive Dow Constantine stressed that the statewide package must address local road needs as well as stable transit funding and has been a strong advocate for a permanent and sustainable solution for local roads.
The Connecting Washington Task Force developed a recommendation for future transportation funding, including proposed new revenue for the state and also new local option revenue sources for County and city road maintenance and preservation. The Road Services Division was actively involved in the effort to push for these new funding sources. The task force found that our state’s transportation system faces enormous challenges in such measures as an increase in the number of vehicle miles traveled and in public transit and ferry ridership. To help meet these challenges, Connecting Washington recommended a $21 billion investment.
In her 2012 State of the State Address on Jan. 10, 2012, Governor Gregoire called on the State Legislature to pass a $3.6 billion transportation package, which included $2.8 billion in roads maintenance funding for cities and counties. The State Legislature declined to act on a sustainable funding package for transportation, failing to bring Senate Bill 6582 and House Bill 2751 to the floor.
King County Executive Dow Constantine spelled out the consequences of the State Legislature's inaction, saying that the impact will first be felt on County roads:
"The current system for funding County roads across the state hasn't been revisited in the last 25 years, and it no longer works. The failure of the state to address local roads funding has led to a sharp decline that required the layoff of 111 needed County roads workers over the last two years - an overall reduction of nearly one in five - and an approach that fully maintains only the highest-priority roads that serve the most residents.
As a consequence of the Legislature's inaction, more roads workers must be eliminated, further eroding our ability to repair and maintain County roads in the unincorporated area. And once we let the quality of our roads system decline, it is that much more difficult and expensive to bring it back."
The King County Council, with the support of Executive Constantine, called on the State Legislature to provide counties with revenue options for transportation, warning that without local transportation revenue options, County roads could be reduced to gravel due to lack of funds to maintain them. The Council gave its unanimous support to a motion calling on lawmakers to make local options proposals their top priority for the 2013 Legislative session.
Contact us
If you have questions or comments about the new tiered-service model:, please contact us at roadservices@kingcounty.gov or 206-296-8766.
New service levels
Tier 1 — Consistently reliable access Tier 1 roads carry 50% of the County Road System’s total daily trips.
Features: Heavily traveled; connect large communities, major services, and critical infrastructure.
Service: Will receive the highest level of storm response, including the first roads to receive snow removal. Users of Tier 1 roads should expect good road and bridge condition and well-maintained drainage. These roads will receive the highest level of maintenance and preservation.
Tier 1 roads slideshow Tip: Hover mouse over slideshow to access controls.
Tier 2 — Generally reliable access Tier 2 roads carry 20% of the County Road System’s total daily trips.
Features: Heavily traveled roads that serve smaller geographic areas; provide alternate routes to Tier 1 roads.
Service: Will receive a lower level of storm and snow response. Will receive maintenance to keep them in good condition. In general, preservation efforts will be more reactive and prioritized based on level of risk and availability of funding.
Tier 2 roads slideshow Tip: Hover mouse over slideshow to access controls.
Tier 3 — Somewhat reliable access Tier 3 roads carry 15% of the County Road System's total daily trips.
Features: Highly used local roads that serve local communities and large residential areas.
Service: Will receive little to no storm and snow response, especially during significant storms. Maintenance and preservation will focus on slowing deterioration, but users should expect to see wear and tear to roadways, possible load limits, lower posted speed limits, and long-term partial closures.
Tier 3 roads slideshow Tip: Hover mouse over slideshow to access controls.
Tier 4 — Less reliable access Tier 4 roads carry 5% of the County Road System's total daily trips.
Features: Local residential dead-end roads with no other outlet.
Service: Will receive virtually no storm and snow response. Maintenance will be limited to activities that preserve access. Users may expect to see a number of one-lane roads with some downgraded to a gravel surface, depending on the level of deterioration and availability of funding.
Tier 4 roads slideshow Tip: Hover mouse over slideshow to access controls.
Tier 5 — Least reliable access Tier 5 roads carry 10% of the County road system's total daily trips.
Features: Local residential roads that have alternative routes available for travel in case of road closures.
Service: Will receive virtually no storm and snow response. Maintenance will be limited and based on factors such as life safety and risk, resulting in a growing number of deteriorating roads. Users can expect to see some closures, which may result in longer detours and difficulty accessing property. These roads may also be downgraded to a gravel surface, restricted to one lane, and have load limits and lower speed limits.
Tier 5 roads slideshow Tip: Hover mouse over slideshow to access controls.
Efficiencies - Actions taken by Road Services
In response to the Strategic Plan for Road Services, which outlines goals and strategies to address the challenges associated with road system needs, costs, and funding, the Road Services Division has taken a number of actions to reform its business and become more efficient.
1. Major cutbacks – As a result of lower-than-anticipated revenues, Road Services reduced its operating budget by $14.6 million and downsized its organization across all levels, reducing the agency by nearly 18 percent in 2011.
2. Tiered service levels – To manage risk in a declining system, the division developed its new tiered-service model to be implemented in 2012. This new approach focuses limited resources to maintain and preserve the most heavily used roadways in the system. Learn more.
3. Reorganization – To accomplish its mission regarding road maintenance and preservation, core safety, and meeting regulatory requirements, the division reorganized to emphasize service delivery, asset management, risk management, and implementation of the tiered service model.
4. Operational efficiencies – The division has enacted a number of measures to provide the highest level of service at the lowest cost.
Investment in flexible equipment that allows quick attachment changes to meet different needs (i.e., mixing concrete, sanding, and applying anti-ice treatments or asphalt).
Enhancement of snow and ice service delivery by preparing equipment, stockpiling materials, developing application strategies, and delineating routes.
Use of Intelligent Transportation System (ITS) technology to remotely operate traffic signals and improve safety.
Use of program-wide permits for maintenance tasks, reducing the need for site-specific environmental permits.
Use of street waste and recycling and reuse programs to significantly reduce disposal costs.
Consolidation of the Brugger's Bog and Cadman maintenance facilities at the Cadman site in Redmond. The division will evaluate possible future consolidations in 2012 as part of its upcoming Facilities Master Plan.
5. Capital program reprioritization - The revised capital program now fits the new tiered service model and focuses on safety and preservation improvements. No projects to improve road capacity are programmed for the future. Overall, the division has reduced its proposed six-year program by about $172 million compared to the program adopted in 2010.
6. Strengthening financial reserves for unanticipated events – The division will accumulate adequate reserves to provide increased stability in financial planning practices, to reduce borrowing costs, and to cover costs resulting from unanticipated emergency flood- and storm-related work.
7. Innovation and technology – The division is using, or planning to use, improved and more fuel-efficient equipment; more efficient technology to manage traffic flow; and modern software systems and best-management practices to optimize management of road assets. These solutions will help improve mobility and focus scarce resources on maintaining and preserving existing infrastructure.
8. Leveraging limited resources most efficiently – The division is leading the establishment of partnerships to leverage funding for shovel-ready projects, is and coordinating the management of supplies, equipment, and skilled workers to achieve economies of scale when responding to storms, addressing pavement condition, and providing reimbursable work to other agencies.
9. Influencing and informing policies and decision makers on future funding decisions – Road Services is proactively taking a leadership role in state and local efforts to focus funding decisions and opportunities for the preservation and maintenance of the existing road system. The division is also working with the state and Puget Sound Regional Council to re-focus funding from capacity improvements to preservation.
10. Keeping the community informed – The division has increased its outreach efforts to keep road customers appraised of the latest road and traffic conditions through its My Commute website and subscriber e-mail and text-message alerts, and is mounting a robust public engagement effort to explain the tiered service model and its likely effect on road conditions.
11. Collaborating with partners and seeking new opportunities to increase contracted work – Economies of scale can be realized when the division secures work for contract cities and agencies within King County. This enables the division and partnering agencies to lower the cost of delivering services while maintaining consolidated in-house expertise.
Tiered Service Levels Map
There are a couple different ways to find a road's tiered service level:
1. Use the map search bar and enter an address (example: 24000 132 Ave SE -
more tips) or 2. Use the zoom slider bar on the left side of the map. Please note that changes to the Tiered Service Levels Map are ongoing as roads come into and leave the system due annexations, new development, etc.
DISCLAIMER: The information included on this map has been compiled by King County staff from a variety of sources and is subject to change without notice. King County makes no representations or warranties, express or implied, as to accuracy, completeness, timeliness, or rights to the use of such information. This document is not intended for use as a survey product. King County shall not be liable for any general, special, indirect, incidental, or consequential damages including, but not limited to, lost revenues or lost profits resulting from the use or misuse of the information contained on this map. Any sale of this map or information on this map is prohibited except by written permission of King County.
1. Why doesn't the Road Services Division have enough funds to keep providing the same level of service?
Revenue growth for the Road Services Division has not kept pace with the costs of doing business, which include increases in the costs of materials, equipment, labor, and benefits.
Revenues have been affected by the elimination of the Local Option Vehicle License fee in 2004, the voter-approved initiative that limited property tax growth to one percent (making it difficult for the agency to keep pace with inflation), the deep recession that has reduced the values of properties in King county nearly 37 percent since 2005, exhaustion of the County’s capacity to levy property taxes to support road services, a steady decline in gas-tax revenues, and a decrease in federal and state grant monies available to help fund the division's capital improvement program.
This loss of funding is creating a large and growing backlog of unaddressed road preservation and maintenance needs. Learn more.
2. How is the Road Services Division responding to this funding problem?
In accordance with its new Strategic Plan for Road Services, the division has instituted a number of reforms and efficiencies to reduce costs and is focusing its capital improvement program on safety, maintenance, and preservation rather than mobility or capacity.
With no new revenue on the horizon, Road Services was directed to develop an approach for managing its declining road system. The new tiered service model is a way to provide service with available funding and within the guidelines established in the strategic plan.
3. What does the tiered service system mean to me?
Depending on the service tier assigned to the roads on which you travel or live, you may see changes in snow removal and emergency event response times, in preventative and reactive maintenance, and in traffic operations work. Learn more.
4. What criteria were used to assign roads to service tiers?
Roads were assigned to tiers according to their importance to the performance of the overall road network. Road Services analyzed every road in the network using a number of factors, including the road’s classification, traffic volumes, the projected length of detours, and equity and social justice as well as whether the road is sole access, a lifeline route, or important in maintaining transit.
5. How often will the tier designations for particular roads be reviewed and/or changed?
Tier designations will be updated at least once a year, and perhaps more frequently if a road becomes sole-access due to a storm or other emergency event.
