The opening of Interstate 5 and the Tacoma Mall in 1965 caused a reduction in the number of retailers in Downtown Tacoma, which was only accessible via local streets from the freeway. The lost business, combined with worsening congestion in Downtown Tacoma, prompted downtown retailers to ask the state government for an improved connection to Interstate 5. The state Department of Highways began studying a freeway connection between the Pacific Avenue Interchange (where SR 7 terminates) and Downtown Tacoma in 1955, recommending a temporary one-way couplet that became part of SR 509 and an eventual freeway link.: In 1968, the Department of Highways adopted the routing of a freeway into Downtown Tacoma along the western side of the City Waterway, to be constructed over railroad right of way.: The project, then part of a new freeway corridor for State Route 509 through the Port of Tacoma, was approved by the Tacoma City Council in 1971, but further planning was suspended at the time due to funding issues.: