February 2022 A cohesive approach to make everyday travel safer, easier and more predictable in the Portland metropolitan area - Oregon.gov
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February 2022 A cohesive approach to make everyday travel safer, easier and more predictable in the Portland metropolitan area.
Table of Contents
Introduction 1
Challenges 1
The Solution: The Urban Mobility Strategy 3
Strategy Overview 4
Urban Mobility Office 5
Urban Mobility Office Vision 6
ODOT’s Strategic Action Plan 9
ODOT’s Urban Mobility Strategy 10
Urban Mobility Strategy Projects 12
Urban Mobility Strategy Partner Projects 13
Urban Mobility Strategy Project Goals 15
Projects Schedule 19
Secured and Anticipated Funding 20
Urban Mobility Strategy Project Connections 21
Oregon Toll Program 26
Why Tolling in the Portland metro Area? 27
Types of Tolls 27
Federal Programs to Authorize Tolls 28
Project-Specific Toll Strategies 30
Finance Planning for Toll Revenue 31
Urban Mobility Strategy
Core Project Descriptions 34
Appendix: Toll Program History,
Regulatory, and Policy Background 51
References 61
Introduction
In September 2019, the Oregon Transportation Commission
created ODOT’s Urban Mobility Office to collaboratively lead
core projects to achieve the values and goals established in
ODOT’s Strategic Action Plan. These core projects are mapped
and described on pages 34–50. In combination with key
projects implemented by partner agencies supported by ODOT,
the core projects will help achieve a modern and multimodal
transportation system in the region by advancing equity,
climate change, congestion relief, and safety goals.
Challenges
Severe traffic congestion
Congestion in the Portland metro area Portland is
has steadily increased in the past decade,
with regional growth trends expanding ranked No. 12
for the foreseeable future. in the United States
for traffic congestion.1
Significant population and
employment growth in the region
are straining the region’s roadways.
The population growth trajectory in the
Portland metro area is anticipated to
accelerate in the coming decades, with a
23% population growth from 2.5 million
to over 3 million residents between 2018
and 2040, and a 43% increase to 3.5 million
residents by 2060.2 Job growth in Greater
Portland continues to outpace that of the
United States average, with job growth in
Portland occurring at an average annual rate
of 2% in 2019, which was greater than the
nationwide average of 1.6%.3
1
ODOT has observed severe congestion
throughout the region’s freeway
Lack of funding has
network. In 2019, evening peak travel resulted in:
times on the most congested portions
of Interstate 5 (I-5) and Interstate 205 • Infrastructure at risk of failing in
(I-205) were close to three times longer a significant earthquake, especially
than travel times in the same areas when critical bridges that need to be
experiencing no congestion. seismically upgraded. The Portland
Sections of I-5 and I-205 with older metro region lacks even one
designs, sudden lane reductions, or earthquake-ready interstate structure
on-ramps with significant demand have across the Willamette River to be a
become severe “bottlenecks,” where lifeline for critical services, supplies,
average speeds have dropped below 75% food and to support the economy after
of desired speeds without congestion a disaster.
(45 miles per hour). While the daily
• Crash rates that are 3.5 times higher
economic impact of delayed vehicles on
on the I-5 Rose Quarter between
regional freeways in 2019 was $1.2 million,
I-84 and I-405 where three interstates
congestion also spurred increased air
intersect than the statewide average.
pollution and collisions.
Improving our infrastructure improves
What’s more, the quality of our safety for all Oregonians using our
transportation infrastructure and transportation system and workers
availability of funds are not keeping supporting it.
pace with population and jobs growth
in our region. The Federal gas tax that • An outdated transportation system
funds transportation projects has that is Oregon’s largest single source of
not increased since 1993, and Oregon greenhouse gas emissions. More cars
state transportation funds have been stuck in traffic directly affect air quality.
dedicated to little more than maintaining
aging infrastructure. • Inadequate resources to address
inequities experienced by historically
and currently underrepresented and
underserved communities.
Allowing the system to
continue on its current
trajectory will deepen
current inequities,
severely diminish the
economy, reduce quality
of life and result in
increased greenhouse
gas emissions.
Interstate Bridge
The solution: The Urban
Mobility Strategy
Now is the time to modernize Portland region’s transportation
system and how we use it. The Urban Mobility Strategy—along
Tolling Open House with ODOT’s multimodal investments and partnerships—is a
cohesive approach to make everyday travel easier, safer, and
more predictable.
The Oregon Toll Program is key to delivering the Urban
Mobility Strategy because it can both manage congestion
through variable-rate tolls, and provide revenue for strategic
transportation improvements.
The Urban Mobility Strategy core projects include:
• I-5 Rose Quarter Improvement Project
• I-205 Improvements Project
• I-5 Boone Bridge Project
• OR-217 Auxiliary Lanes Project
• Interstate Bridge Replacement Program
• Oregon Toll Program
Portland cannot build its way out
of congestion
Countless locations across the world have tried and failed to
build their way out of congestion. Oregon is rightly proud of our
I-5 Rose Quarter
focus on multimodal infrastructure investments. We know that
highways are only one part of a thriving transportation network.
The Urban Mobility Strategy for the Portland metro region
represents the Urban Mobility Office’s approach to reducing
congestion for decades to come.
The Urban Mobility Strategy will manage congestion with:
• Variable-rate tolling
• Reducing highway bottlenecks
• Investing in public transportation, walking and rolling paths
Together, the multimodal infrastructure investments and
strategies will provide people with efficient travel using the
transportation mode of their choice.
3
I-205 Corridor
Strategy Overview
The Urban Mobility Strategy outlines how ODOT will implement the core
projects prioritized by House Bill 2017 and House Bill 3055. Additionally, the
Strategy presents partner agency projects that help to achieve ODOT’s
Strategic Action Plan. ODOT supports these projects through collaboration,
committee engagement, technical assistance, and/or financial support. The
Oregon Toll Program will be an essential implementation strategy to both
fund some of the projects and contribute to systemwide congestion relief.
This Strategy document is
organized into the following
sections: House Bills 2017 & 3055
1. Urban Mobility Office – In 2017, the Oregon Legislature passed
House Bill 2017, known as “Keep Oregon
Overview of the Urban Mobility
Moving.” This landmark legislation committs
OˇP)PPfi—H:J:)
billions of dollars in projects that address
commitment, and goals our congestion problem and improve
2. Urban Mobility Strategy – the transportation system in the region
Overview of the comprehensive and statewide. House Bill 2017 funds
congestion management and bottleneck relief highway projects, freight
mobility projects and their rail enhancements, improvements to
connection to Urban Mobility transit, and upgrades to biking and walking
OˇP—: facilities. The Oregon Legislature also directs
the Oregon Transportation Commission to
3. Oregon Toll Program – pursue and implement tolls on I-5 and I-205
Overview of the toll program, in the Portland metro area to help manage
including the connection traffic congestion and raise revenue for
between tolling and the bottleneck-relief projects.
projects (both agency-led and
partner projects) In 2021, House Bill 3055 strengthens the
4. Urban Mobility Strategy state’s commitment to congestion pricing
on I-5 and I-205 and directs the creation of
Project Descriptions –
the Toll Program Fund to be used for toll
overview of strategy projects,
system investments and transportation
including key decisions,
project financing. The House Bill amends
milestones and timelines ORS 383.001 to explicitly acknowledge
5. Appendix: Toll Program Oregon’s congestion issue and the role
History, Regulatory, and tolling has in alleviating the issue and
Policy Background – detailed supporting climate goals: Significant traffic
summary of statutes and congestion adversely impacts Oregon’s
policy that guide tolling in economy and the quality of life of Oregon’s
Oregon and an overview of toll communities. Where appropriate, variable-
policy decisions rate tolls should be applied to reduce
traffic congestion and support the state’s
greenhouse gas emissions reduction goals.
4
Urban Mobility Office
Our Charge
U2ƒ
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advancing ODOT’s mission to comprehensively ODOT’s Mission
address our most pressing transportation We provide a safe and
challenges:
reliable multimodal
• Maintain and improve efficiency of travel on transportation system
our transportation system. that connects people
• Support, lead and secure sustainable funding and helps Oregon’s
for multimodal projects that reduce traffic
communities and
congestion.
• Reduce regional bottlenecks
economy thrive.
• Center equity systematically, and in each
individual project.
The Urban Mobility Office uses the following strategies and tools to achieve
systemwide improvements:
• Actively partnering and investing in public transportation and multimodal projects
• Designing a congestion management system that supports greenhouse gas reduction
• Improving equity in Oregon’s transportation system by listening and incorporating
community feedback, and working with Disadvantaged Business Enterprise
contractors to prepare them for the bidding process and to meet hiring aims, and
providing project information in five languages (Russian, Spanish, Vietnamese,
Traditional Chinese, and Simplified Chinese)
• Upgrading or replacing bridges to withstand a major earthquake
• Enhancing safety for all Oregonians and workers supporting our transportation system
• Supporting statewide goals and direction provided by the Oregon Transportation Plan
and Oregon Highway Plan
Mobility is having access to the places needed to fulfill a
rich and satisfying life, such as a job, schools, medical services,
shopping, parks, and personal activities such as seeing your
kid’s game after work. In this sense, mobility means having
quality and diverse transportation options enabling
businesses and people to safely fulfill needs within budgets
for time and money. Mobility directly impacts the quality of life
for all Oregonians every day.
– 2020 Statewide Congestion Overview – ODOT September 10, 2020
5
Urban Mobility Office Vision
U2ƒ
T MƒHoˇP O i::Hƒ:fiH The Urban Mobility Office
oversee, align, and implement ODOT’s core urban commits to the following:
mobility projects to achieve regional congestion • Address past harms caused by
relief, mobility, and safety for all Oregonians and highway construction and seek
people using the highway and interstate system. In to do no harm in the future.
fifiH)HU2ƒMƒHoˇP O :/H— Look at every project through
the Oregon Toll Program, which will contribute a restorative justice and equity
to regional congestion relief and secure sustainable lens, asking for community
funding to modernize, not just maintain, the input and incorporating
transportation system. feedback every step of the way.
• Implement projects that
In line with ODOT’s mission, the Urban Mobility adhere to ODOT’s greenhouse
ˇP
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O i2// gas reduction goals and
have access to the mode of transportation that mitigate negative impacts
works best for them. For communities to thrive, wherever possible.
Oregonians need to have easy, convenient,
• Reduce congestion across
fiˇˇ2fiƒH2:/2HHHH2PH:
the region through support
community’s stated needs and wants.
of public transportation,
active transportation (such
as biking and walking) and
Congestion on Portland implementation of congestion
pricing on our highways to
metro highways is provide reliable trips.
impacting economic • Increase safety through
competitiveness for the investments in infrastructure.
entire state. • Support and improve the
– One Oregon, A Vision for Oregon’s statewide economy by
Transportation System (2016); Transportation improving the transportation
Vision Panel Report to Governor Kate Brown system in the economic and
shipping hub of Portland.
The term
congestion pricing
describes a type of tolling that
aims to improve mobility, travel
times, and reliability by charging
a higher price during peak
traffic periods.
6
ODOT’s Strategic Action Plan and the
Urban Mobility Office
Oregon state transportation funds are dedicated primarily to maintaining and preserving
the system’s functional standards. Outside of a few projects, ODOT lacks the funds to make
discretionary investments that would enhance and modernize the transportation system.
And yet we have many transportation needs: to serve all Oregonians equitably, relieve
traffic congestion, provide a broader range of mobility options, and ensure the safety of all
travelers. The Urban Mobility Office’s charge is to meet the four goals grounded in ODOT’s
2021 Strategic Action Plan. Through its work on ODOT’s core projects and support of
partner projects, the Urban Mobility Office seeks the following:
Equity Congestion
Serve all Oregonians equitably. The voices of our Relief
PPHoHH2fiPPHi2ifi.ˇPP:
A Invest in a comprehensive
on equity ensures that we look beyond merely improving congestion management
the system to improving the quality of life of every strategy for the Portland
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and burdens created by our work and ensuring they are Oregonians, and implement
distributed equitably. The equity goal includes focusing on system and operational
workforce diversity and opportunities for advancement, JH:H2fiPPH2ˇP
expanding economic opportunities for minority groups, congestion throughout
climate-change equity, and creating more representative Oregon.
public engagement processes.
Accessibility, Mobility and Safety
Climate Change P2JHH2ˇPˇHH:fi
Provide greater transportation access and a broader serious injuries and ensure
range of mobility options for Oregonians to address the safety of travelers and
climate change. transportation workers.
The Urban Mobility Office:
• Facilitates coordination and provides deliberate and • Supports and is planning
cohesive project delivery of its core projects. closely with the Interstate
Bridge Replacement
• Coordinates with other ODOT projects in the planning, Program that is jointly
design, and construction phases. This includes the I-5 led by the Oregon and
Boone Bridge and Seismic Improvements Project and Washington Departments
the OR 217 Auxiliary Lanes Project. of Transportation.
Section 4 (Pg. 34) provides more detailed project descriptions of the core projects.
7
ODOT’s Urban Mobility Strategy Core Projects
WA Clark
County
Interstate Bridge Vancouver
Replacement Program
Camas
OR
I-5 Rose Quarter
Improvement Project
Troutdale
Gresham
26 Portland
OR 217 Auxiliary
Lanes Project
Multnomah
County
Beaverton
217 Portland Toll Projects
Milwaukie
Tigard Happy Valley
Lake
Oswego
Washington
County
Clackamas
County Gladstone
Tualatin
I-205 Improvements
Project
West
Linn
Oregon
City
I-5 Boone Bridge and Seismic
Improvements Project
Wilsonville
0 1.5 3
Miles
8ODOT’s Urban Mobility Strategy
The Oregon Toll Program, which is led Tolling is a vital funding element for projects
ƒoHU2ƒMƒHoˇP)
O :/2Hˇ on the Urban Mobility Strategy map. Projects
ODOT’s long-term strategy to manage that may be funded partially by toll revenue
travel demand, ease congestion, include the I-205 Improvements Project, I-5
and secure sustainable revenue for Rose Quarter Improvement Project, and the I-5
highways, bridges, and multimodal Boone Bridge Seismic Improvement Project.
capital investments.
There are many types of tolling:
The Oregon Toll Program projects will implement
variable-rate tolling or c
" ongestion pricing
GOALS BENEFITS INCLUDE
Manage congestion
Manage congestion
Raise revenue for
transportation improvements
Raise revenue to
fund projects that Increase system reliability
reduce congestion
Support state climate goals by
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9Urban Mobility Strategy Projects:
Through the Regional Mobility Pricing The I-205 Improvements Project will
Project, ODOT is considering variable- provide key bottleneck relief and seismic
rate tolls to manage congestion and upgrades on the interstate in Clackamas
raise revenue to help fund construction County by adding a third through lane to
of approved transportation projects that match the rest of I-205 and earthquake-ready
further reduce congestion. The start and bridges. The Abernethy Bridge will be the
end points for variable-rate tolling on I-5 2:H2H1PL2fioH2:HH:H2PPHP2
and I-205 will be determined in 2021 and across the Willamette River, making I-205
2022 through a planning process. Starting in the passable north–south route through the
2022, we will engage agency partners and Portland region after a potential Cascadia
the community to narrow the best regional Subduction Zone earthquake.
options for I-5 and I-205 to study in a formal
environmental review starting in 2022. The I-5 Boone Bridge and Seismic
Improvements Project will improve safety
The I-205 Toll Project will implement tolls and resiliency on I-5 by upgrading the
in the vicinity of the Abernethy and Tualatin Boone Bridge to withstand a potential
River Bridges in Clackamas County to fund Cascadia Subduction Zone earthquake and
the I-205 Improvements Project. The toll improve safety and operations by adding
/2PH:ƒ—JPHfiˇ2ƒH:fi a southbound auxiliary lane between the
impacts. As considered, tolls would help Wilsonville Road (Exit 283) and Charbonneau/
fund construction of the planned I-205 Hubbard Interchanges (Exit 282A). The
Improvements Project while giving travelers a project will identify active transportation
better and more reliable trip. improvements across the Willamette River.
The I-5 Rose Quarter Improvement Project The OR 217 Auxiliary Lanes Project will
will add auxiliary lanes and shoulders to address long-standing bottlenecks on the
reduce congestion and improve safety on highway between Beaverton-Hillsdale
the main north–south interstate highway on Highway and OR 99W caused by too many
the West Coast and redesign the multimodal closely spaced interchanges. One of the
local street network to provide for improved worst bottleneck locations is at the Allen
active transportation access. These upgrades Boulevard and Denney Road interchanges.
P2Hfii2fiPP:H/LfiL—H2ˇP The project will add a new frontage road—
and reduce congestion on I-5 between I-84 replacing a major bridge structure and
and I-405 where three interstates intersect building four sound-attenuation walls. In
fi2:PHHƒ——:HH2ˇPƒHHP partnership with the City of Beaverton and
in Oregon. The project will also improve Washington County, we are making targeted
community connections by redesigning improvements to local bicycle and pedestrian
overpasses and reconnecting neighborhood routes.
streets, enhancing public spaces, and
promoting economic development ODOT Co-Led Project:
opportunities. With a focus on restorative
justice, the project is committed to leveraging Interstate Bridge Replacement Program
deep ties with the historic Albina community will replace the aging Interstate I-5 Bridge
to ensure meaningful involvement with across the Columbia River with a modern,
Black Portlanders and Disadvantaged seismically resilient, multimodal structure
Business Enterprise contractors. Input from that will improve mobility for people, goods,
the community will help shape the project and services well into the next century.
and outcomes for the community including
supporting generational wealth.
10Key Project Considerations:
Equity and Congestion
Multimodal transportation options and In Oregon, the federal gas tax and its state
travel reliability are key components of equivalents are the primary revenue source for
access to employment and economic these investments and projects. This funding
vitality for low-income travelers and model is outdated and “regressive.” Lower-income
displaced populations. Transportation 2:fiH:Hiofi2Jfi2)::ˇPLˇPH
P:H:tHtH:PfiL2—:Hn/:ˇH2 vehicles and live farther from their place of
P:—ˇ22P:tHtJ
A :Hfio employment—pay more on a relative scale than
increased and account for approximately wealthier drivers who contribute to the congestion
39% of average household spending for problem with greater peak-hour commutes.7
H/2:HˇHˇ2P:.
A These Further, lower-income travelers are more likely to
impacts are pronounced in Portland J::nƒHoH2H2J:PfiP:fi
and Multnomah County, which exceed therefore suffer the most from unpredictable
the 11.4% Oregon state average of the travel. Congestion pricing is one funding tool
impoverished population, at 13.7% HHP2PPP2Ho2PHHH2PP:H
and 12.0%, respectively. Further, the of those contributing to peak-hour congestion6
population of persons of color in those fiƒHiLPfi2J2:i—oJP
2::—PHonPfi:H:HHifi reduced congestion and greater travel reliability.8
average of 13.3%, with persons of color
comprising 22.6% of Portland residents. When roadway pricing provides congestion relief,
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Land use practices in Oregon are also reduced risk of pollution-induced health risks to
closely tied to transportation costs. Unlike people living near congested roads, who are more
other states, Oregon limits sprawl by likely to be lower-income individuals.9 Meanwhile,
using a planning tool called an urban toll revenues from congestion pricing are often
growth boundary—a land use planning redirected to public transportation improvements.
border that controls urban expansion Additionally, toll rebates or discounts can be
into farm and forest land and promotes implemented for low-income motorists. Through
HˇPHP:ˇfi)/PƒPˇPH: the ODOT Toll Program, ODOT is seeking to
and services inside the boundary.6 In turn, implement effective policies and programs for
the state’s tight urban centers are often low-income motorists and public transportation
unaffordable to those employed in the enhancements.
area, forcing low-income workers to live
several miles from their jobs. Oftentimes,
driving is the only viable commute option.
These low-income commuters need to be
supported through road investments and
congestion relief projects.
11Funding
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funding sources for multimodal projects that if the projects in Metro’s Regional
that would alleviate freeway congestion Transportation Plan—which includes
simply do not exist. The federal gas tax planned multimodal transportation
that funds transportation projects has enhancements through 2040—were fully
not increased since 1993, and Oregon funded, the amount of annual hours that
state transportation funds have been Portland households spend in congestion
dedicated primarily to maintaining aging would be reduced by approximately 50%.
infrastructure, providing seismic upgrades However, given the funding challenges
of bridges, and building construction fiHfi/2JP:o)ˇPfi—ˇ2oˇ
projects. Coupled with cost escalation and H:/2PH::HƒfiHfi)H
/fiƒo2—//PH—2iH) alone programmed.
the pool of resources that could be
dedicated to congestion relief along state-
owned freeway sections are stretched.
Oregon faces an annual
$510 million
shortfall in its ability
to adequately maintain
a state of good repair on
bridges and pavement
12Urban Mobility Strategy
Partner Projects
ODOT is committed to supporting and /2PH:
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investing in projects that provide a Strategy map include ODOT-led and co-led
modern transportation system for all PHfi/2PH:fifiHH:—PH
Oregonians. This includes: partner-led projects.
• Multimodal transportation The partner projects are led by counties, cities,
investments like public public transportation providers, and other
transportation, bicycle and pedestrian P—Po/2H2:.oT i2fiHfi
facilities from Metro’s Regional Transportation Plan
as key projects that advance multimodal
• Safety enhancements like seismic accessibility and are critical to achieving
upgrades to bridges regional congestion relief. The project list may
• Bottleneck alleviation to reduce expand as funding and regional priorities
potential crashes P—.DOO fiT U2ƒMƒHoˇP
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will work with regional partners to identify the
This commitment comes in two forms: investments that best meet ODOT, partner,
delivering projects and supporting and regional goals.
partner projects.
Multimodal
transportation
options typically include walking,
cycling, public transportation,
car sharing, and trucking.
Planning for a multimodal
transportation system should
consider, evaluate, and
implement improvements for all
types of travel.
13WA Clark
County
I-5 Interstate Bridge
Replacement Program Vancouver
I-205 CTRAN/ODOT
Bike/Ped Bus on Shoulder Pilot
Crossing Project Portland
International
Airport Camas
Westside
Multimodal OR
Study Congressman Earl
Blumenauer
THPRD Bike/Ped Bicycle and TriMet Red Line
Trail Extension Pedestrian Bridge Doubletrack
I-5 Rose Quarter
Improvement Project Troutdale
Outer Powell
Portland Transportation Gresham
26 Safety Project
TriMet Red Line 82nd Avenue
Extension Improvements
and
OR 217 Auxiliary Jurisdictional
Lanes and Hall Blvd Transfer Multnomah
Bike/Ped Crossing County
Milwaukie
Beaverton
217
Tigard Oregon Toll Program Happy Valley
TriMet Lake
SW Corridor Oswego
(planned)
Washington
County
Clackamas
County Gladstone
Tualatin
I-5 SMART/ODOT
Bus on Shoulder Pilot West I-205 Improvements
Linn and Seismic Upgrades
Oregon
City
Oregon City/West Linn
Pedestrian and Bicycle
Bridge Concept Plan
Wilsonville I-5 Wilsonville
Bike/Ped Crossing
French Prairie I-5 Boone Bridge and
Bike/Ped Crossing Seismic Improvement Project
0 1.5 3
Miles
Urban Mobility Strategy Map
Currently Funded by HB2017 Made Possible with HB3055 Partner Project with ODOT Support
System Improvement Project System Improvement Project System Improvement Project
Bike/Ped Crossing Project Regional Mobility Pricing Project Bike/Ped Crossing Project
I-205 Toll Project Bus on Shoulder Pilot
TriMet Project
Note: Core project names are boxed
Multimodal StudyUrban Mobility Strategy Project Goals
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goals linked to the ODOT Strategic Action Plan.
Urban Mobility Strategy Projects
Equity Congestion Relief Climate Safety
I-5 Rose • Focus on minority • New auxiliary lanes and • Reduces stop/start • Local street
Quarter owned Disadvantaged widened shoulders will H2ˇP)iPi improvements will
Business Enterprise (DBE) address bottlenecks improve air quality and provide pedestrian
Improvement contracting; a Community that cause congestion decrease greenhouse and bicycle
Project Oversight Advisory and crashes, which gas emissions. protection.
Committee provides create delays for • Bicycle and pedestrian • New auxiliary lanes
oversight, accountability travelers and freight; improvements will will separate slower
and recommendations to these improvements provide greater vehicles and higher
ODOT for the DBE/On-the- will provide options access to multimodal speed vehicles.
Job Training Program. for bus-on-shoulder transportation options.
programs. • Full shoulders
• Robust engagement with will provide space
historically and currently • Addresses the state’s for disabled and
underrepresented top bottleneck and emergency vehicles.
and under-served 28th-worst freight
communities. bottleneck in the nation.
• The Historic Albina
Advisory Board was
created to elevate voices
in the Black community
and ensure that project
PHP:2PH
community interests and
values and that historic
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from the investments of
this project.
15Urban Mobility Strategy Projects
Equity Congestion Relief Climate Safety
I-205 • Public engagement and • Corridor congestion will be • SH/4:H2HH2ˇPi • Abernethy Bridge
Improvements National Environmental reduced by about 5 hours be reduced, which will improvements will
Policy Act process fio)ƒH—H2J2: improve air quality and P:H2PPHH2:H
Project fiHfiˇi of all incomes with a more reduces greenhouse gas earthquake-ready
communities of concern. reliable trip. emissions. interstate structure across
• Robust engagement with • New auxiliary lanes and • Project bicycle and the Willamette River.
historically and currently widened shoulders will pedestrian improvements Seismic upgrades will
underrepresented address bottlenecks that provide greater be done to eight other
and under-served cause congestion and multimodal transportation corridor bridges.
communities. crashes, which create access. • New roundabout will
delays for travelers and improve safety and
freight; further these operations for northbound
improvements will travelers accessing I-205.
provide options for bus on • Auxiliary lanes will be
shoulder programs. lengthened and improved
to address substandard
2——fi2fiPPH2ˇP
weaving.
Oregon Toll • Established Equity • Improves travel time, • Reduces greenhouse • Better congestion
Program: Framework and Equity 2ƒHo)fiˇPH gases and vehicle miles management reduces the
and Mobility Advisory movement of goods. traveled through mode large speed differences in
I-205 Toll Committee, which shifts. Project evaluating :H/LfiL—H2ˇPHH
• Improves regional and
Project and deepens relationships statewide economic expanded transportation backs up at peak travel
Regional and partnerships with development by opening options. hours.
Mobility historically and currently access to a wider range • Reduces greenhouse gases • Evaluating strategic
underrepresented of jobs and improving emissions by managing investments made to
Pricing Project and under-served predictability of travel congestion so that fewer advance equity through
communities. times. hours are spent waiting in safety improvements in
• Established new process highway congestion. areas affected by toll-based
to advance equity through diversion.
project development. • I-205 Improvements
• Evaluating strategic Project, which includes
investments to advance crucial seismic upgrades, is
equity for transit and made possible with tolling.
multimodal transportation
options, neighborhood
health and safety, and
16 affordability.Urban Mobility Strategy Projects
Equity Congestion Relief Climate Safety
OR 217 • Working with community- • New auxiliary lanes will • Greater transportation • Auxiliary lanes and the
Auxiliary Lanes based organizations and help address bottlenecks access and a broader new frontage road will
other active community that cause congestion range of mobility reduce the amount of
and Hall Blvd groups to reach and crashes, which create options will be provided merging on the highway,
Bicycle and historically and currently delays for travelers and for Oregonians while resulting in increased
Pedestrian underrepresented freight. addressing climate change safety and reliability.
Crossing and under-served through bottleneck relief.
communities.
I-5 Boone • Equity goals, objectives, • New auxiliary lanes and • Climate goals, objectives • Project will determine
Bridge and outreach and widened shoulders will and achievements will the best approach to
achievements will be address bottlenecks that ƒfifi:H:HPfio address safety and seismic
Seismic fifi:H:HPfio cause congestion and progresses. resiliency.
Improvement progresses. crashes, which create
Project delays for travelers and
freight; further these
improvements will provide
options for bus on shoulder
programs.
• Project will use variable-
rate tolling to provide
congestion relief.
17ODOT Co-Led Project
Equity Congestion Relief Climate Safety
I-5 Interstate • Commitment to • Multimodal crossing and • Commitment to • Program will construct an
Bridge centering equity in all improved connections will considering climate earthquake-ready structure across
aspects of program move travelers through impacts and the Columbia River.
Replacement work to not only the program area more resiliency throughout • Program will remove the interstate
avoid further harm predictablely, improving development and lift span that increases vehicle
to marginalized mobility and travel time delivery. crashes that result in injuries,
and under-served reliability . • Currently constrained fatalities, infrastructure damage,
communities, but also • Improved roadway transit options, fiP2:fiH2ˇPP—:H.
ensure that they have a safety design and the connections, limited
voice to share program • New shared-use paths that meet
elimination of bridge lifts service/hours, and current safety standards will
work and realize that currently contribute ˇPHH2J
the economic and improve traveler safety for those
to increased crash rates times deter users who walk, bike, and roll by making
H2:/2HHƒH: fiH2ˇPƒPP/:i from choosing low-
of the program. improvements to the current
further improve travel emission transit facility that has low railing, a narrow
• Targeted community reliability and help reduce options through the width, and is directly adjacent to
engagement congestion. program area. Modal H2:HHH2ˇP.
and outreach to • Multimodal solutions that choices, including
underrepresented high-capacity transit, • Program will enhance overall
include improvements multimodal safety by improving
and underserved to active transportation walking, biking, and
populations ensures rolling, will result in merging and weaving between
facilities and interchanges, adding safety
that these voices improvements to transit more predictable
are helping shape movement of people shoulders, removing stops on the
reliability will provide more interstate, and updating roadway
the program in a choices to get across the and goods across the
meaningful way. Columbia River. design to current safety standards.
Columbia River.
I-5 Boone • Equity goals, objectives, • New auxiliary lanes and • Climate goals, • Project will determine the best
Bridge and outreach and widened shoulders will objectives and approach to address safety and
achievements will be address bottlenecks that achievements will be seismic resiliency
Seismic fifi:H:HPfio cause congestion and fifi:H:HPfio
Improvement progresses crashes, which create progresses
Project delays for travelers and
freight; further these
improvements will provide
options for bus on shoulder
programs
• Project will use variable-
rate tolling to provide
congestion relief
18Projects Schedule
Earliest toll collection could begin on I-205 toll corridor
Earliest toll collection could begin on Regional Mobility
Pricing Project identified toll corridor
2020 2021 2022 2023 2024 2025 2026 2027 2028
Develop toll technology Testing/open customer service
OREGON TOLL and customer service
PROGRAM
Develop program-level equity and mobility strategies
I-205 TOLL Environmental FHWA and USDOT toll approval (if necessary)
PROJECT Publish
h2H
document Toll rate setting
REGIONAL Planning Environmental FHWA and USDOT toll approval
MOBILITY
PRICING Publish
PROJECT h2H
document Toll rate setting
Environmental Design
I-5 ROSE QUARTER
Pre-construction
PROJECT
Independent highway Construction
cover assessment
OR 217 AUXILIARY
LANES AND HALL
BLVD BICYCLE Design Construction
AND PEDESTRIAN
CROSSING
INTERSTATE BRIDGE Planning
REPLACEMENT
PROGRAM Environmental Pre-construction Construction
I-205
IMPROVEMENTS Design
Phase I construction
PROJECT Phase II construction
I-5 BOONE BRIDGE
AND SEISMIC Planning Environmental Design and Construction
IMPROVEMENT PROJECT and design construction
19Secured and Anticipated Funding
This matrix outlines secured and anticipated funding from known funding sources for the
core comprehensive congestion management and mobility projects. These sources may
change as new opportunities become available.
Project Fully Toll Federal State Local
Funded Contribution Contribution* Contribution Contribution
Funded by House Bill 2017
I-5 Rose Quarter
X X X X
Improvement Project
OR 217 Auxiliary Lanes
and Hall Blvd Bicycle and X X X X
Pedestrian Crossing
Projects made possible with House Bill 3055
I-205 Improvements
X X X
Project
I-5 Boone Bridge and
Seismic Improvement X X X
Project
Partner Project with ODOT Support
I-5 Interstate Bridge
X X X
Replacement
*Federal contribution could be federal formula or federal discretionary funds (RAISE or INFRA grants, New
Starts, etc.).
20collaboration between individual project
Urban Mobility teams. The I-205 Improvements Project,
Office Project for example, depends on toll revenue
from the I-205 Toll Project, meaning
Connections that, at the very least, schedules must be
—fiˇ2P/2PH.BPHP—
The core projects that the Urban Mobility decisions for the I-205 Improvements
ˇP
O —:2—H2—Z: Project also affect the purpose and—by
most challenging to design and deliver. extension—the technical analysis for the
They address the worst bottlenecks and I-205 Toll Project.
some of the toughest safety issues in the
Portland metro area. Not surprisingly, The following section captures
the projects are also interconnected and some of the key decisions facing the
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must understand and address the key section describes where cross-project
decisions that each project faces and fi/fiP:JƒfiHfifi
determine whether these issues require where further collaboration is needed.
I-205 Corridor
21Oregon Toll Program Key Decisions and Milestones
Toll Rate Setting for the I-205 Toll Project
Toll rate setting is a process that will determine how much tolls are going to cost drivers. Being
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set expectations and provide project transparency. Once project toll rates are set, additional
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the I-205 Toll Project need to be set by mid-2024.
Several decisions inform toll rate setting, including Some of these decisions
the I-205 Toll Project funding target, level of may be political in
congestion relief desired, and vehicle-class nature and will need
tolling options (for example, will freight trucks be public input to inform
charged a higher toll than passenger vehicles) the decision.
—H2:.EPJ2ƒ::/PPfiP:L
making processes and requirements that need to
be addressed before setting the toll rate.
Impacts Funding Impacts
If toll rate setting isn’t completed on time, The I-205 Improvements Project’s
ODOT will miss the late 2024/early 2025 Finance Plan is at risk if toll revenue
tolling “Go Live” date on the I-205 Toll Project. cannot be used to fund the project.
Tolling Will Fund Multimodal Investments
A best practice of toll programs around the U.S. is to pair ODOT is working with the Toll
H/HHiH:/PPPHfi/2PH: Program’s Equity and Mobility
and programs—such as enhanced bus service or walking Advisory Committee and Transit
and biking trails—or programs that make it easier for and Multimodal Working Group
fiJfiP:HfiP2/:.I2—)
O :J:HH: to identify multimodal and public
may not be able to be funded by toll revenue due to an transportation investments that
Oregon constitutional restriction11 on funding public ODOT will either incorporate into
transportation service and improvements that are not in the toll projects or identify as an
the roadway. Identifying multimodal investments early will opportunity to work with partner
allow time for ODOT to work internally and with partner agencies to implement.
agencies to identify a path to funding these improvements.
The Oregon Transportation Commission will receive a
project recommendation for multimodal and public Without Tolling These
transportation investments on a project-by-project basis. Projects Cannot Move
The Oregon Transportation Commission is tasked with Forward
giving ODOT direction to work internally and with partner ODOT and partner agencies
agencies to achieve the recommendations. Multimodal do not have adequate
and public transportation investments will need to be funding to invest in
fiHfifiP2—HJ2H/:ˇP/2PH. multimodal and public
transportation elements
before implementing
22I-205 Improvements Project Key Decisions and Milestones
Project Finance Plan
IL´T
T ¯I/2JH:P2PHP:HJFfi2H—iofi:H2HA @FHWAA
Major Projects Financial Plan for Phase 1A by November 2021. The project will initiate
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—:HfiH::2HLH2P—/H:ˇ2H/2PH.HiJ2)H:::Pfi
that toll revenue will be used to pay back initial borrowing costs. In July 2021, the Oregon
Transportation Commission will program funds in the summer.
The process to program construction
funds will require Oregon Transportation Impacts of Delay
Commission to dedicate funds through the
About $24 million/year
Statewide Transportation Program, and
Metro will subsequently meet to update
its Metropolitan Transportation Program.
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the Statewide Transportation Program
amendments and the Project Financial Plan.
Determine Construction Sequencing and Schedule
Establishing the preferred construction sequencing and schedule is a decision that
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two construction phases each: Phase 1 will include four contracts (as described below)
and Phase 2 will also include multiple contracts:
• Phase 1A will provide improvements between OR43 and OR99E, which include
construction of the seismically upgraded Abernethy Bridge, interchange
improvements and a sound wall.
• Phase 1B includes construction of the Main Street Bridge and a northbound
auxiliary lane, and sound-attenuation walls between OR99E and OR213.
• Phase 1C includes construction of West A and Sunset bridges, rock cuts and
highway widening between 10th Street and Sunset Bridge.
• Phase 1D includes construction of the 10th Street Bridges and highway widening
between OR43 and 10th Street.
• Phase 1A is scheduled to go out to bid in December 2021. Phases 1B through 1D
scoping, sequencing, and specifications will be determined by fall 2021.
Impacts of Delay
• Seismic and operational • About $24 million per
improvements are delayed, year in inflation costs
including congestion relief and
safety enhancements
23I-5 Rose Quarter Improvement Project Key Decisions and Milestones
Confirm Highway Cover Design and Use
The I-5 Rose Quarter Improvement Project includes a highway cover, in addition to the I-5 mainline
improvements, and local multimodal street improvements. In early 2020, the Oregon Transportation
Commission directed the Oregon Department of Transportation to retain a consultant team that
would conduct an independent assessment of the proposed highway covers included in the I-5
Rose Quarter Improvement Project to evaluate design and use scenarios that best align with the
community vision. The goal for this independent team was to understand the goals and objectives
of stakeholders in the project area, with a focus on the historic Albina community, generate potential
—ioPJ2fi:—fiP::P2:./2/:fi
T —ioPJ2fi:—2H:J
an impact on project cost and schedule; The Oregon Transportation Commission will consider this
information when providing direction on the highway cover design and use.
Federal Highway Administration will determine if additional environmental
review under the National Environmental Policy Act is required based on the
proposed highway cover design and use.
Delaying a decision on the highway cover design and use beyond Q1 2022 has
the potential to delay the project’s 30% design milestone, which could have an
impact on the construction start date in 2023.
The Oregon Transportation Commission has approved an aligned community
recommendation based on stakeholder agreement and buy-in, prioritizing the
voices of the historic Albina community. Ultimately, the Oregon Transportation
C::i/2Jfi/2PHfi2PH.
Impacts of Impacts of Impacts from other
Missed Milestone Cost Increases Urban Mobility Strategy
• 30% design milestone is at About $2 million per Projects
risk of being delayed, which HHP:H: If there is delay to the project
will delay subsequent design schedule, Disadvantaged
milestones and ultimately, Business Enterprise (DBE)
project construction —:oƒfiˇPPHH
achieve due to a lack of DBE
• 1+ year delay would increase capacity to deliver so many
risk to 2023 construction start regional projects at one time
Early Work Packages
The I-5 Rose Quarter Improvement Project aims to start project construction on some
elements in mid-2023 through a series of early work packages. Ideally in September 2022,
but at the latest in January 2023. ODOT must achieve the following milestones before
beginning early construction as planned:
• Obtain Federal Highway Administration initial finance plan approval
• Successfully negotiate early work packages with the construction
manager/general contractor
• Achieve community consensus and obtain Oregon Transportation
Commission direction on highway cover design and use
HW PHHfiP::H/P—:2fifiƒoDOO )T HH:H2PƒA
Advisory Board will provide input to the approach.
24I-5 Rose Quarter Improvement Project Key Decisions and Milestones
Achieving Design Milestones
I-5 Rose Quarter Improvement Project design milestones must be achieved in order to
fiJ2H/2PH:PfiP.HiJ2)Hˇi—:—PHfiP::fi/2H2
input are needed to keep the project on schedule to meet the design milestones:
• Community consensus and timely Oregon Transportation
Commission decision-making for the highway cover design and use
• City of Portland re-engagement and input on design details for the
surface street system and city permits
• Portland Public School’s input on the desire for a sound wall near
Harriet Tubman Middle School
Impacts of Schedule Delay/ Impacts of Impacts from other
Missed Milestone Cost Increases Urban Mobility Strategy Projects
• 1+ year would increase risk to About $2 million If there is delay to the project schedule,
2023 construction start per month in Disadvantaged Business Enterprise
HP:H: @DBEA—:oƒfiˇPPHHPJ
• Delay to design milestones due to a lack of DBE capacity to deliver
will increase risk of not so many regional projects at one time
meeting 2023 construction
start date
Identifying Funding Plan
As the highway cover design and use team evaluates design options and the consensus
community-informed recommendation is brought to the Oregon Transportation Commission,
the project cost estimate will be updated. Costs are expected to increase with updated design
recommendation for the highway covers. Further, if the decision around the highway cover
design and use is delayed beyond Q1 2022, the project will be subject to cost increases due to
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T /P:Hƒ//2JfiƒoFfi2H—iofi
A :H2Hƒˇ2H
project can start construction, which is scheduled for mid-2023.
Decisions needed to inform the funding plan include the following:
• Highway cover design and use
Impacts of Impacts of Cost Impacts from other
Missed Milestone Increases Urban Mobility Strategy Projects
• 1+ year would increase risk About $2 million • If there is delay to the project
to 2023 construction start per month in schedule, Disadvantaged Business
• Delay to design HP:H: Enterprise (DBE) goals may be
milestones will increase difficult to achieve due to a lack of
DBE capacity to deliver so many
risk of not meeting 2023
regional projects at one time
construction start date
• There is potential for toll revenue
to contribute funds to the project
25Oregon Toll
Program Two major milestones must be
completed before ODOT can begin
to toll, as detailed on the project
The U.S. currently has over 150 roads, bridges, and schedule (page ):
tunnels that are paid for by tolls. Additionally, 49
• Corridor study and
express lanes in 11 states use congestion pricing
environmental review. For the
/2P/:HHˇ2Li:/fi:i
I-205 Toll Project, toll alternatives
serving more people in public transportation and
carpools. ODOT has learned from these experiences are being evaluated through
and is creating a 21st Century program that takes an Environmental Assessment
the best elements of its peers’ programs. Oregon’s as required by the National
innovative, systemwide use of tolls will prevent Environmental Protection Act
recurring congestion on our freeways, remove (NEPA). This project is on schedule
bottlenecks, and repair critical infrastructure for the to finalize the NEPA approval
state’s mobility and economy. process by late 2022/early 2023.
With approval in place, the project
The Oregon Transportation Commission oversees can be implemented once the
tolling, or congestion pricing, in the state, including next milestone is achieved. For
setting toll rates (see Appendix A for more on the Regional Mobility Pricing
the Oregon Transportation Commission’s role in
Project, evaluation of a more
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T MƒHoˇPLfi
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regional application of tolling
Program will deliver all aspects of the toll system
on I-5 and I-205 is taking place
under guidance of the Oregon Transportation
Commission. This includes the following: and will identify toll alternatives
to move into the Environmental
• Identifying potential toll corridors and
phase by mid-2022.
conducting analysis to determine if tolls
are feasible and, if so, how they should be • Toll Infrastructure Development.
implemented (in progress) ODOT must develop toll
infrastructure for operations,
• Identifying and establishing program-level
including physical infrastructure
equity and mobility strategies to employ with
and toll technology, and establish
each toll corridor (in progress)
services to efficiently collect tolls,
• Establishing and operating back-office provide customer service, ensure
systems to administer tolls, including financial integrity, establish legal
account management, customer self-service, and programmatic authorizations,
transaction processing, violation processing, and maintain transparency and
accounting, reconciliation, interoperability, and accountability. Appendix A provides
reporting (in progress) more information about this
• Designing and constructing physical toll process. The soonest these systems
infrastructure, such as gantries over the would be established, tested, and
roadway ready to “Go Live” is 2024.
• Administering tolls and collecting toll fees
The Oregon Toll Program is in
The Oregon Toll Program is in the initial stages of the beginning stages of project
H2:HH2ƒPH:ƒJ.2:H
T HHH: development and system
will be deployed in the region is in late 2024. establishment.
26Why Toll in the Both federal and state sources fund
transportation, which includes taxes on
Portland metro Area? fuel and heavy vehicles, and fees for drivers
and vehicle registration. The federal gas
Tolls would benefit those who pay tax remains unchanged from 1993 and the
the toll with a faster, more reliable amount given to Oregon has decreased
trip and provide funds for highway over that time period. At the same time,
and multimodal improvements aging roads and bridges, earthquake
in the corridor. Variable rate tolls risks, a growing population, and rising
will help manage travel demand, construction costs have greatly increased
resulting in reduced traffic our funding needs.1
congestion. Toll revenues will help
increase funding for transportation In 2017, the Oregon Legislature13 agreed to
projects, which has not kept boost transportation investments for all
pace with the cost to maintain Oregonians. The adopted law dedicated
or improve our multimodal millions of dollars to improve highways,
transportation system. freight railroads, public transportation,
and biking and walking facilities. The law
also directed the Oregon Transportation
Commission to study the feasibility of
ODOT is committed to using fiH/HH:vIL¯fi
systemwide pricing on I-5 and I-205 in the Portland metro area to help
I-205 through variable-rate tolling —H2ˇPP—:H.2— OT
and considers it to be a vital tool Constitution requires that revenues
to manage traffic demand in the collected from highway tolls must be
Portland metro area. spent on roadway projects, which could
include construction or reconstruction
Data show that traffic flows the of travel lanes, bicycle and pedestrian
smoothest at speeds from 45 - 65 facilities, or public transportation
mph. The number of vehicles that improvements in or along the roadway.14
get through per hour can drop
by as much as 50 percent when
severe congestion sets in. With
peak-period highway pricing,
a variable toll dissuades some
motorists from entering freeways
at those access points where
traffic demand is high, and where
such surges in demand may
push the freeway over the critical
threshold at which traffic flow
collapses.12
27Types of Tolls
Guided by the Oregon Transportation Commission, ODOT is pursuing systemwide tolling
that could include two types of tolling: congestion pricing and project tolling. Together,
these two toll types work to achieve both congestion relief and provide funding for projects
HHfifi2::oH2ˇPƒHHP:fiP/—2fiƒ2fi—:ˇ2::P2:Po.oT /2Jfi
//2HPHoˇ2DOO H
T PHH2H2:/2HHHi2ˇPPo.
Congestion Pricing Project Tolling
ˇA Hfifi2::H2ˇPP—:H.:Pfi2
T A user fee to drive on a road or bridge to
congestion pricing would vary by time of day and raise funds for improvements to the facility,
H2ˇPPfiH:iHH—H/2Jfi2 many of which are old and in need of
predictable travel during peak hours. In Oregon, seismic upgrades as our community faces
the purpose of congestion pricing is to both the risk of a major seismic even in the next
manage congestion and raise revenue to help 50 years. Tolls can also vary by time of day
fund construction congestion-relief transportation H/—H2ˇPifi/2Jfi
projects while helping ODOT achieve climate goals. congestion relief.
Expected Benefits
• Improved travel time and increased reliability, safety, and efficiency
• Reduced greenhouse gas emissions and fuel consumption
• New, sustainable funding source through a user fee
• Strategies to enhance transportation equity and mobility
Federal Programs to Authorize Tolls
Implementing tolling on I-5 and I-205, both of which are interstate highways under the National
Highway System, will require one or both of the following federal authorizations with concurrence
from the Federal Highway Administration.
• Section 129 General Tolling • Value Pricing Pilot Program: provides
Program: gives the Oregon transportation agencies with options to manage
Transportation Commission the congestion on highways through tolling and other
authority to implement tolls pricing mechanisms. Interested state, regional, and
when they are used to fund local government authorities are eligible and may
new highways and new lanes apply for tolling authority. Any project implemented
on existing highways, or the through this program requires formal approval
reconstruction or replacement from the Federal Highway Administration/U.S.
of bridges, tunnels, or existing Department of Transportation and must be formally
toll facilities. approved by the U.S. Secretary of Transportation.
Predictable mobility and transportation options for travelers depend on adequate funding
for multimodal improvements, and tolling is an essential part of the toolbox of transportation
funding options. This Urban Mobility Strategy illustrates a potential suite of multimodal
transportation improvements to modernize the transportation system in the Portland metro
area. The projects in this Strategy include elements that are eligible for toll revenue funding
(see below). ODOT intends to collaborate with jurisdictional partners to prioritize potential
funding of these projects with toll revenue.
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