i-5: aurora - donald interchange improvement project - narrative.pdfthe aurora- donald interchange...

I-5: Aurora - Donald Interchange Improvement Project

Project Title: I-5 Aurora – Donald Interchange Improvement Project Applicant: Oregon Department of Transportation Location: Marion County, Oregon Urban/Rural: Rural BUILD Request: $25,000,000 Non-Federal Match: $29,548,200 Other Federal Funds: $11,674,800 Eligible Project Costs: $66,223,000 Percent Match: 45%

I-5 Aurora – Donald Interchange Improvement Project

Table of Contents i. Project Description ....................................................................................................................... 1

ii. Project Location .......................................................................................................................... 6

iii. Grant Funds, Sources and Uses of Project Funds ...................................................................... 7

iv. Selection Criteria ........................................................................................................................ 8

(1) Primary Selection Criteria .......................................................................................................... 8

(a) Safety ..................................................................................................................................... 8

(b) State of Good Repair ........................................................................................................... 11

(c) Economic Competitiveness .................................................................................................. 13

(d) Environmental Sustainability ............................................................................................... 15

(e) Quality of Life ....................................................................................................................... 16

(2) Secondary Selection Criteria.................................................................................................... 18

(a) Innovation ............................................................................................................................ 18

(i) Innovative Technologies ................................................................................................... 19

(ii) Innovative Project Delivery .............................................................................................. 20

(iii) Innovative Financing ....................................................................................................... 21

(b) Partnership .......................................................................................................................... 21

v. Environmental Risk .................................................................................................................... 23

(a) Project Schedule .................................................................................................................. 23

(b) Required Approvals ............................................................................................................. 25

1. Environmental Permits and Reviews ................................................................................ 25

2. State and Local Approvals. ................................................................................................ 25

3. Federal Transportation Requirements Affecting State and Local Planning. .................... 26

(c) Assessment of Project Risks and Mitigation Strategies ....................................................... 26

vi. Benefit Cost Analysis ................................................................................................................ 28

I-5 Aurora – Donald Interchange Improvement Project ODOT BUILD Grant Website: https://www.oregon.gov/odot/About/Pages/BUILD-grant.aspx

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i. Project Description The Oregon Department of Transportation (ODOT) is requesting $25,000,000 from the Better Utilizing Investments to Leverage Development (BUILD) discretionary grant program to complete construction of the I-5: Aurora-Donald Interchange Improvement Project (Project). This rural application seeks to leverage over $35 million in non-federal funding for interchange improvements critical to supporting freight and vehicular mobility, public safety, and regional economic growth. BUILD funds will permit the completion of an innovative Diverging Diamond Interchange that will address key deficiencies while greatly exceeding ODOT mobility standards well beyond ODOT’s standard design life of 20 years. As a result, the project will enhance safety and ensure long-term efficiency of freight and passenger mobility through this rural section of Interstate 5 (I-5) – the most important north-south transportation facility for Oregon and the entire West Coast. This Project was submitted to the U.S. Department of Transportation’s INFRA grant program by Marion County, Oregon – in partnership with ODOT – in February 2020. This ODOT proposal requests funding for the same project. The BCA has been updated and minor changes reflect the separation of engineering and earthwork from roadway construction.

Project Need The Aurora-Donald Interchange is the primary access point to I-5 for a vast rural area of northern Marion County. The interchange is charged with facilitating travel between I-5 – the primary West Coast freight corridor and access route to Portland – and Ehlen Road and Bents Road, major county crossroads serving area farms and industry. A component of one of the nation’s designated major freight corridors, this segment of I-5 carries at least 8,500 trucks each day and more than 50 million tons of freight each year. The interchange supports local access for businesses and agricultural operations in rural north Marion, Yamhill and Clackamas Counties, while supporting high levels of freight and passenger travel along I-5. Each day, 97,600 vehicles pass over the interchange on I-5 and 32,000 use the interchange. Unfortunately, the current configuration cannot accommodate current and growing travel demands through these corridors. Built approximately 60 years ago for a much lower traffic volume, the interchange has been over-capacity at peak times for many years. Both of the off-

SB Exit Ramp: Vehicles form two lanes, driving on should of single lane exit ramp.


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ramps frequently experience long vehicle queues throughout the day that back up to the high-speed freeway mainline, presenting a safety hazard. The combination of several truck stops, the largest number of truck parking spaces along I-5 in Oregon, and high levels of freight traffic on Ehlen Road at this interchange severely inhibits freight and passenger vehicle mobility. In addition, the volume of traffic, proximity of connecting roads and access points, and poor visibility cause congestion and safety concerns around the interchange and contribute to its characterization as the worst unsignalized interchange on I-5, both geometrically and operationally.

Specifically, the I-5 northbound ramp terminal with Ehlen Road currently fails to meet ODOT’s adopted mobility target of 0.85 and is very congested during the 30th Highest (design) Hour, with traffic demand nearly exceeding the capacity of the intersection. At this intersection, the stop-controlled northbound left turn experiences the most delay. Other turning movement also fail or nearly fail ODOT’s mobility limit. The primary causes of congestion and long off-ramp queues at the interchange are: • High volumes of large, heavy trucks at this interchange move more slowly and require more

space than automobiles. • Obstructed sight lines caused by the underpass structure and curved Ehlen Road alignment

make turning left from the ramp terminals difficult. • The proximity of the connection of Bents Road to the I-5 southbound ramp terminal

intersection creates confusion and unexpected conflicts. • The lack of left-turn lanes on Ehlen Road at the I-5 ramp terminals causes delay and safety

problems. Proposed Project BUILD grant funds will be used to complete the total reconstruction of the interchange, resulting in a Diverging Diamond Interchange (DDI) and intersection improvements that would meet ODOT mobility standards and standard design life for over two decades. ODOT identified the improvements outlined in this application through a comprehensive alternatives analysis

At the NB Exit Ramp, vehicles often wait over wo minutes to turn. This delay forces left-turning trucks to block travel lanes on Ehlen Road while vehicles on exit ramp double-up on the single lane ramp.


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involving more than 25 stakeholder groups and more than 50 Project development team members. This solution was found to be the least cost alternative, while successfully addressing all key interchange deficiencies. Specifically, the Diverging Diamond Interchange design achieves 3 key results:

1. Safety – Eliminates the 2 leading causes of vehicle accidents at this interchange. 2. Mobility – Greatly exceeds all ODOT mobility standards. 3. Durability – Mobility performance extends for decades, far beyond ODOT’s standard

design life for interchanges. The State of Oregon, recognizing the immediate need to address deficiencies at the Interchange, provided a significant down payment of over $34 million. However, a $25 million funding gap remains to complete the full project. A source for this sizeable funding gap has not been identified, and ODOT is statutorily required to obligate its state-appropriated funding by fiscal year 2021. Without a BUILD award, ODOT will be forced to proceed with a phased approach that would fail to address mobility and safety deficiencies, require approximately $5 million in temporary construction and add over a decade to the full project timeline. Absent current funding to complete the total reconstruction of the interchange infrastructure, ODOT created a Phase 1 project in the Statewide Transportation Improvement Program (STIP) which focuses limited financial resources on the freeway infrastructure. In ODOT’s Phase 1 project, the I-5 bridges spanning Ehlen Road would be replaced to accommodate future reconfiguration of Ehlen Road and build-out of the DDI in a possible Phase 2 project. If ODOT proceeds with a phased approach, the interchange will operate as a conventional signalized diamond interchange until funding can be secured for future construction of the DDI. The cost of a future Phase 2 infrastructure improvement to complete the DDI is well beyond existing available state and county funding and funding expected in the near future. Based on current expectations of future federal, state and county transportation funding it is widely believed it will be 10 years or more before Phase 2 funding sources can be secured. However, $25 million in BUILD funding is sufficient to expand the scope of ODOT’s Phase 1 project to complete the Diverging Diamond Interchange and realize the benefits described in this proposal now rather than 10 years in future. The timing of BUILD funding is compatible with ODOT’s current Project schedule. ODOT and Marion County are developing the Project to remain fully eligible to receive federal funding. No delays, rework or added costs will occur from the integration of 2020 BUILD grant funds into the existing phased Project. Construction will begin in 2022 and will be completed in 2024. HOW THE PROJECT ADDRESSES CURRENT PROBLEMS

Problem Project Solution Ramp terminals nearly exceed v/c ratio Signalize ramp terminals with improved sight distance

and removal of conflicting movements


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Exit ramps queues back up onto freeway and cause major safety problems

Expand exit ramp storage capacity—lengthen and widen ramps, and add signals

Ramp terminal intersections suffer from substandard spacing and geometry, lack of capacity, and safety issues

Improve the awkward ramp terminal intersections

I-5 bridges are 50 years old and functionally obsolete and structurally obsolete

Replace the bridges

Intersection of Bents Road with Ehlen Road is busy, and it is too close to the interchange

Relocate Bents Road farther west, widen Ehlen Road, and improve the Ehlen Road – Bents Road intersection and signalize, reduce conflict points near the ramp terminal

Ehlen Road has a high percentage of truck traffic and minimal access control

Widen Ehlen Road and consolidate/limit access points

Limited existing state right-of-way around the interchange

DDI design efficiently uses existing right-of-way

Bents Court intersection with Ehlen Road is busy and offset from Bents Road

Align the Bents Court – Bents Road access points

Dolores Way intersection with Ehlen Road is busy and very close to the interchange

Move Dolores Way east to improve access management spacing and reduce conflict points near the ramp terminal

Limited sight distance under I-5 bridge structures Remove sight obstructions and improve the alignment No bike or pedestrian facilities The new bridge will allow for designated facilities with the

full interchange Project Features BUILD funding will eliminate the need to phase the project and allow the simultaneous completion of both phases resulting in construction of the Preferred Alternative DDI now. Improvements to interstate highway and county road infrastructure include:

• Raise and move the southbound I-5 travel lanes east into the median; • Construct a new I-5 bridge over Ehlen Road; • Widen and lengthen the northbound and southbound off-ramps; • Construct the diverging diamond alignment, signals, and guide signage on Ehlen Road; • Relocate and signalize the Ehlen Road – Bents Road – Bents Court intersection; • Construct bike and pedestrian facilities along Ehlen Road; and • Relocate the Ehlen Road – Dolores Way intersection and realign Dolores Way.

Full-buildout of the DDI will operate far below ODOT’s mobility targets. The transportation analysis shows that the DDI results in a mobility level well below the target 0.60 v/c at both ramp terminals in 2042. It would improve safety and lower the cost of time and fuel to travel through the area, benefiting regional and state mobility, as well as interstate and international mobility along I-5.

Benefits for Rural Communities The Project is located entirely within a rural area as classified by the project criteria of the BUILD program. If completed, the Project will directly benefit rural communities in the Mid-Willamette Valley by improving safety, relieving congestion, enhancing transportation access and facilitating economic growth. Mobility improvements will support increased quality of life and local job


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creation for area farms and industry. As a result, the local partners expect additional investment and activity for new and existing businesses, generating significant economic activity in this rural area. Moreover, the improved transportation efficiency of the interchange will enhance access to essential services, while reducing emissions and energy use.

PHASE 1 AND FULL BUILD IMPROVEMENTS

Note: Phase 1 improvements shown in grey. Full Build improvements shown in blue underlay outline.


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ii. Project Location The Aurora-Donald interchange is located on I-5 at Exit 278. The project limits will extend from I-5 Mile Post (M.P.) 278.21 at the south end to I-5 M.P. 279.06 at the north. It is in Marion County, Oregon, in the northern end of the Willamette Valley, approximately one mile northeast of the incorporated city of Donald and approximately 3 miles west of the incorporated city of Aurora. The interchange is situated in between Portland and Salem, Oregon’s largest and third largest communities and metropolitan planning areas, approximately 7 miles north of the Woodburn Interchange, 4 miles south of the Charbonneau Interchange, and 6 miles southwest of Wilsonville.

As defined by BUILD, the Project Location is rural, outside of the boundary of any Census-designated urbanized area. Using an online map tool and Census results, the population estimate of the area within a 3-mile radius of I-5/ Ehlen Road, which encompasses the interchange, is approximately 6,750. The closest neighboring incorporated communities of Donald (979), Aurora (918), and Hubbard (3,501), have a combined 2010 census population of 5,398. The project’s 2011–2015 Census Tracts (41047010201 and 41047010202) are not in Opportunity Zones.

Northern Marion County, situated in the heart of Oregon's Willamette Valley, is the agricultural hub of the state. Each year, the county’s 288,671 acres of farm operations produce over $700 million in commodity sales, generating $119 million in net farm income. As of 2017, its 864 farms employed over 13,516 people. The greater Willamette Valley is home to over two-thirds of Oregon’s wineries and produces 44% of the state’s $5 billion in agricultural products sold each year. Efficient freight and vehicle movement is critical to the region’s economic vitality as a whole. The significant amount of agricultural production and economic activity requires safe, efficient access to I-5.


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Ehlen Road, the major east-west county crossroad at this interchange, provides a regional connection to I-5 for rural northern Marion County, as well as indirect access to rural communities in Clackamas and Yamhill counties. It is vital that the Aurora-Donald Interchange provide mobility to and from I-5 with limited impediments to serve regional, statewide, and national travelers, and support economic development of the area. The Newberg-Dundee bypass, located approximately 10 miles northwest of the interchange, opened in 2018. That $252 million project constructed almost 4 miles 2-lane roadway connecting the communities of Newberg and Dundee to I-5 via OR 219 and Ehlen Road. It has placed increased demand on the Aurora-Donald Interchange, compounding an already difficult situation. Southbound OR 219 traffic turning left towards Ehlen Road has increased approximately 20-40% since the bypass opened.

iii. Grant Funds, Sources and Uses of Project Funds Based on a comprehensive construction cost estimate prepared by ODOT, the total estimated cost for the I-5: Aurora-Donald Interchange Improvement Project is $72,023,000, including all Planning, Preliminary Engineering, Right-of-Way, Construction, Utility Relocation, and contingencies. This estimate is based on ODOT’s 30% Design Acceptance Package level of design completion and includes an appropriate construction contingency of 35% and an inflation/escalation allowance of 8.5%. The requested $25 million will be the final dollars needed to complete full build-out of the DDI. All other funds have been acquired and are in the process of being adopted into the STIP. State funding from legislation passed in 2017 (HB 2017) provides funding that must be obligated in fiscal year 2021, which aligns with ODOT’s project schedule. The project does not rely on any private, speculative, or conditional funding. All federal and non-federal matching funds have already been allocated to this project by ODOT. The BUILD funds, if awarded, will be used to complete construction of the DDI within ODOT’s existing STIP project. The Diverging Diamond Interchange will be completed as a single project without phasing—no separate project components and no cost sharing. SUMMARY OF INCURRED EXPENSES AND FUTURE ELIGIBLE COSTS

Project Phase Incurred Expenses1 Future Eligible Costs2 Total Project Costs3 Planning $800,000 $800,000 Preliminary Engineering $5,000,000 $4,300,000 $9,300,000 Right-of-Way $3,800,000 $3,800,000 Utility Relocation $500,000 $500,000 Construction $57,623,000 $57,623,000 $5,800,000 $66,223,000 $72,023,000

1Currently obligated project funds include $800,000 in Planning and $5 million in Preliminary Engineering. Although not all of these funds have been expended, we are counting them as incurred expenses for simplicity. 2, 3Refer to ODOT’s 30% Design Acceptance Package level of design Construction Estimate for a summary of all eligible construction costs, including contingencies, construction engineering costs, and other eligible costs.

https://www.oregon.gov/odot/About/BUILD/K19062_DAP.pdf

https://www.oregon.gov/odot/About/BUILD/Const%20Cost%20Estimate.pdf


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EXISTING PROJECT FUNDING SOURCES Funding Sources1 BUILD Other Federal Non-Federal3 Total Keep Oregon Moving (HB2017)2 Discretionary Program $25,000,000 $25,000,000

Keep Oregon Moving (HB2017)2 Safety Program $9,273,000 $9,273,000

ODOT Region 2 Fix-It Program $1,881,936 $158,767 $2,040,703 ODOT Region 2 Enhance Program $2,999,999 $343,363 $3,343,363 ODOT Region 2 Leverage Grant Program $6,792,865 $573,070 $7,365,934

2020 BUILD Grant Funds $25,000,000 $25,000,000 Totals $25,000,000 $11,674,800 $35,348,200 $72,023,000

1Refer to Oregon 2021-2024 Draft STIP for further information. Note that a pending modification to the 2021-2024 Draft STIP will reduce current total project funding from $49,566,363.42, which is the amount currently stated in the STIP, to $47,023,000 consisting of $11,674,800.26 in Other Federal funds plus $35,348,199.74 in Non-Federal Funds. 2House Bill 2017 is a new statewide gas tax revenue source enacted by the Oregon legislature in 2017. 3All Non-Federal funding sources for this project are state gas tax revenue sources.

TOTAL ELIGIBLE PROJECT COSTS AND SOURCES Project Phase Non-Federal Percent BUILD Percent Other Federal Percent Preliminary Engineering $4,300,000 100 Right-of-Way $3,800,000 100 Utility Relocation $500,000 100 Construction $20,948,200 36 $25,000,000 44 $11,674,800 20 Total $29,548,200 $25,000,000 $11,674,800 Funding % 45% 38% 17%

iv. Selection Criteria (1) Primary Selection Criteria (a) Safety The inefficient, unsignalized interchange intersections, combined with abbreviated off-ramps frequently contribute to queuing and backups onto I-5. Stalled traffic in the right lane and shoulder of the six-lane interstate pose a significant risk to traveler safety. During peak periods, vehicles traveling high speeds northbound on I-5 often confront this stopped traffic with very little time to react. In the five-year period from 2012 to 2016, there were 241 crashes in the Project area, including the I-5 mainline within one mile north and south of the interchange. Of these, 93 occurred at ramp terminal intersections. The Interchange has an average of 48 reported accidents each year, which is more than twice the average for rural, unsignalized intersections in Oregon.

“Aurora Donald Interchange’s outdated design and heavy freight volumes create safety issues with all vehicles entering/exiting I-5 and increases the potential for all vehicles to

backup onto I-5.” – Oregon Freight Plan

https://www.oregon.gov/odot/About/BUILD/STIP.pdf

https://www.oregon.gov/odot/About/BUILD/HB2017FactSheet.pdf


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Along the I-5 freeway segment there were 113 crashes (between MP 277.7 and 279.7). Most of the crashes (57%) were classified as rear-end crashes while nearly 30% of crashes involved roadway departure where a driver hit a fixed-object. The remaining crashes were due to drivers following too closely. One fatal collision was reported in 2013 immediately upstream of the southbound off-ramp. A heavy vehicle traveling too fast struck a passenger vehicle (rear-end crash) stopped in traffic. Three serious injuries were also reported due to following too closely to avoid a slow vehicle, reckless driving, and a distracted driver failing to stop in time to avoid a vehicle ahead. The remaining collisions resulted in minor injuries or only property damage. In addition, two crashes occurred on the I-5 northbound on-ramp, with one of them resulting in a fatality. A distracted driver rear-ended a semi-truck and another passenger car leading to a fatality and four serious injuries. The Safety Priority Index System (SPIS) provides ODOT another method for identifying potential safety problems and crash patterns on state highways. The SPIS is a method developed by ODOT and is a scoring system based on three years of crash data and considers crash rates, severities, and frequencies. The highest rated sites (e.g., the top 10%) are prioritized for potential safety improvements. One location in the study area, the segment of Ehlen Road from Bents Road to the northbound ramp terminal, was found to be rated among the state’s top 5 and 10% SPIS sites and has been flagged as a safety focus area. Field observations and discussions with area business owners revealed additional safety issues that are not easily identified through the crash data alone. The most significant safety issue in the project area is caused by long off-ramp queues that frequently back up onto the freeway mainline. This issue has been observed at both off-ramps during weekdays and weekends and at several different times of the day. Another safety issue is caused by trucks merging onto I-5 northbound at low speeds because the uphill grade of the on-ramp limits their ability to properly accelerate. Lastly, the large turning radius of the southwest corner of the I-5 SB/Ehlen Road ramp terminal combined with the grades and super-elevation at the entrance to the southbound on-ramp may be related to trucks making the eastbound to southbound right turn too fast and rolling over on their side or losing loads. This occurred on Saturday November 9, 2019, when an interstate truck making the right turn onto the

Problems at the Interchange create long backups onto the Mainline of I-5, creating safety issues.

https://www.oregonlive.com/pacific-northwest-news/2013/11/one_dead_in_interstate_5_crash.html


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on-ramp rolled onto its side and spilled fuel. A business owner at the open house on November 13, 2019 claimed that this is a common occurrence. Freight traffic on I-5 regularly includes vehicles transporting hazardous materials. As the west coast’s major freight corridor, this segment of I-5 facilitates the movement of over 50 million tons per year, including hazardous materials such as fertilizer for regional agriculture, liquified gases, and many fuel sources that could cause significant damage to the human and natural environment if released. The DDI design accommodates the large truck movements prevalent at this interchange and allows for free left turns on and off of I-5. Both exit ramps will be extended to the project limits on I-5 to provide deceleration length and 2-lane sections, which provide turn lane storage in advance of the ramp terminal curves. Because of high truck volumes and significant vehicle queuing, more than 1,300 feet of 2-lane storage will be included for the NB exit ramp, and 1,000 feet for the SB exit ramp. Deceleration length of 730 feet will be available for 70 mph highway vehicles to a potential stop condition at the end of the vehicle queues on both ramps. New traffic signals will be installed at the intersections of Ehlen Road and both I-5 ramp terminals. ODOT standard pushbuttons, with countdown pedestrian signal heads will be used for all signalized crosswalks. The crosswalk along the west leg of the Ehlen Road/I-5 southbound ramp is proposed to be closed due the high volume of right turning vehicles and potential for conflicts. Closing this crosswalk will improve the safety and operations at this intersection associated with the dual right turns. Supplemental signal heads will be installed at the Ehlen Road/I-5 southbound ramp terminal for the eastbound and westbound travel directions. Crash reduction factors (CRF) were obtained for only those elements of the projects for which reliable CRFs were available. Weighted average CRFs for each scenario were calculated by identifying where crashes have historically occurred along Ehlen Road and applying the CRFs where appropriate. The table below shows the weighted average CRFs for the Phase 1 and Full Build scenarios, as well as the resulting crash reductions based on crash data from 2013-2017. WEIGHTED AVERAGE CRASH REDUCTION FACTORS

Scenario Weighted Average CRF

Crashes Before

Crashes After

Crashes Reduced

Crashes Reduced Per Year

Phase 1 41% 115.0 68.4 46.6 9.3 Incremental change from Full Build 29% 68.4 48.8 19.6 3.9

Full Build 58% 115.0 48.8 66.2 13.2 No serious or fatal accidents have occurred at Oregon’s other Diverging Diamond Interchange (Fern Valley Interchange) since it went into service in 2016. ODOT’s traffic analysis confirms that the project will eliminate traffic backups onto I-5 and conflicting left-turn crossing movements on Ehlen Road, which are the two leading sources of accidents at this interchange. All told,


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completion of this project is expected to generate over $39 million in safety benefits over 20 years. The interchange is expected to experience traffic volumes over double its capacity by 2042 if no action is taken. As traffic increases, and the congestion problems worsen, it is anticipated that crashes in the Project area would increase under both a No Build Scenario and Phase 1 only project. Areas of concern are the off-ramps, which are projected to be very congested and experience long queues back to the freeway mainline more often than currently experienced. Also, with high levels of congestion projected for the ramp terminal intersections, drivers may attempt to turn onto Ehlen Road into smaller gaps in traffic than they would typically accept. This increased risk-taking in areas with limited sight distance and unexpected conflicts from the five-legged Ehlen Road/Bents Road/I-5 southbound intersection may lead to more crashes. (b) State of Good Repair The project is consistent with all relevant State and local plans to maintain transportation in a state of good repair and address vulnerabilities, including the Marion County Rural Transportation System Plan, 2021-2024 Draft STIP, the Oregon Freight Plan, and the Interchange Area Management Plan. The existing interchange network is aging and obsolete. Built approximately 60 years ago for a much lower traffic volume, the interchange frequently experiences congestion and delay at peak times. In the Mid-Willamette Valley Area Commission on Transportation’s 2019 Biennial Report, ODOT characterized this location as the worst unsignalized interchange on I-5, both geometrically and operationally.

ODOT measures highway mobility using the volume-to-capacity (v/c) ratio, which assesses theoretical demand to use the facility compared to the actual vehicle capacity. Higher v/c ratios indicate greater levels of congestion. The Oregon Highway Plan (OHP) mobility target for I-5

Congestion caused at the SB Exit/Ehlen Road intersection is compounded by a multitude of turning movements and this being essentially a 5-leg intersection with Bents Rd. This photo has a black truck waiting at Bents Rd., a dump truck that is turning left onto Bents Rd., a queue of vehicles at the SB off-ramp, the I-5 SB on-ramp, and through-vehicles on Ehlen Rd.

https://www.co.marion.or.us/PW/Engineering/rtsp


https://www.oregon.gov/ODOT/STIP/Documents/2021-2024_STIP_Draft.pdf

https://www.oregon.gov/ODOT/Planning/Documents/OFP-2017-Amended.pdf


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interchange ramp terminals is 0.85 v/c. As the v/c ratio approaches 1.0, traffic flow may become unstable, and delay and queuing conditions may occur. Level of Service (LOS) is a commonly used performance measure computed following Highway Capacity Manual methodologies. It is a rating of the level of mobility (typically as a function of delay or density) on a scale of A-F. LOS F represents conditions where average vehicle delay has become excessive and demand has exceeded capacity. In its current configuration, the I-5 northbound ramp terminal with Ehlen Road operates at a Level of Service F (Failure) and a v/c ratio of 0.96. The I-5 southbound ramp operates at a Level of Service C and a v/c ratio of 0.73. Vehicle delays average 19 and 15 seconds, respectively. Growth within the interchange area will be driven through development of additional parcels within the existing interchange zoning district; approximately 30 acres of developable land exist within the interchange area. Interchange District zoning allows for necessary commercial facilities to support travelers including gas or service stations, towing operations, vehicle mechanics, hotels, restaurants, RV parks, vending machines, or parking. With interchange traffic projected to increase over 20% by 2042, the currently mobility issues will significantly worsen if left unimproved. This proposal to complete both Phase 1 and Phase 2 of this project simultaneously, resulting in a fully functional DDI, is the only way to secure the long term condition and resiliency of the interchange.

Phase 1 only interchange improvements will result in v/c ratios at both the northbound and southbound ramp terminals that exceed the state’s mobility standards. The v/c ratio for the northbound ramp terminal is projected to be 0.93 in 2023 after completion of Phase 1 and 1.1 in 2030. The v/c ratio for the southbound ramp terminal is projected to be 0.82 in 2023 after completion of Phase 1 and 0.98 in 2030.

Without improvement, the interchange will continue to deteriorate, further jeopardizing safe and efficient travel for freight and passengers though this rural area. Moreover, without a BUILD award this year, the serious deficiencies of the interchange will force ODOT to take short-term measures to provide relief to the asset. However, due to a lack of funding these improvements would fall well short of the mid and long-term needs of interchange, undermining the long-term cost structure by increasing costs by tens of millions of dollars.

In contrast, ODOT’s analysis of the proposed Diverging Diamond Interchange design that would be constructed with BUILD funding confirms the improved interchange will achieve excellent traffic performance with no further interchange modifications required for well beyond 20 years. The transportation analysis shows that the DDI results in a mobility target well below the required 0.85 v/c at both ramp terminals. The v/c ratio for the northbound and southbound ramp terminal is projected to be less than 0.40 in 2042. Complete operational results for both southbound and northbound ramp terminals are shown in the table below for various years and scenarios.


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Condition Ramp Terminal Vehicle/capacity (v/c) rating

Delay during peak hour (hrs)

Roadway at capacity 1.0

Oregon Highway Plan Minimum Standard 0.85

2018 Existing NB 0.96 SB 0.73

2022 No Build NB 1.03 10.7 SB 0.76 9.1

2042 No Build NB 2.77 67.3 SB 1.79 96.5

Oregon Highway Design Manual Mobility Target 0.60

2042 Phase 1 Only NB 1.43 78.6 SB 0.97 41.1

BUILD Proposal (2042) NB 0.27 7.2 SB 0.35 11.4

Notes: 1. The Oregon Highway Plan (OHP) and Highway Design Manual (HDM) mobility standards are applicable to the interchange. 2. Ratios in excess of this result in unacceptable levels of congestion.

ODOT has provided thorough analysis to ensure that all additional funding needed to complete this project has been secured and appropriately capitalized for responsible, long-term investment into the expanded infrastructure. Furthermore, ODOT will fund maintenance of the project under its jurisdiction by utilizing state gas tax dollars. ODOT uses data driven information to make decisions about maintenance. For pavement conditions, ODOT uses a Pavement Management Plan based on current and projected conditions to prioritize and justify expenditures on the system. Safety projects are prioritized based on traffic volumes and accident history. (c) Economic Competitiveness The Project will advance the BUILD goal of supporting Economic Competitiveness by facilitating the movement of freight and goods, eliminating a notorious bottleneck that has stifled economic development in the region for decades. I-5 provides statewide and national mobility for travelers and freight, and is the most important north-south transportation facility for the entire West Coast. Completion of this Project is critical to the region’s agricultural and transportation sectors, and will conservatively produce almost $17 million in economic benefits alone over its life cycle. Marion County is the top county in Oregon for agricultural production. USDOT’s ROUTES Initiative recognizes that transportation networks are critically important for domestic production and export of agricultural commodities. Ehlen Road provides the only direct, rural connection between more than 135 square miles of highly productive agricultural lands in Marion and Yamhill counties and the interstate highway system. All other freeway connections to these agricultural lands are located in urbanized areas. Marion County has 288,671 acres in farm operations, accounting for 14% of the state’s total agricultural commodity sales ($701 million) and 16% of the state’s net farm income ($119

https://www.oregon.gov/ODOT/Planning/Documents/OHP.pdf

https://www.oregon.gov/ODOT/Engineering/Pages/Hwy-Design-Manual.aspx


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million). According to the U.S. Department of Agriculture’s (USDA) 2017 Census of Agriculture, the Willamette Valley, in which Marion County is situated, produced $2.2 billion (44%) of the state’s $5 billion in agricultural products sold. The State Board of Agriculture identifies “access to markets and promotion of Oregon agriculture, food, and beverages in local, domestic, and international markets” as one of its four key initiatives. Without improvements, the interchange will continue to limit freight movement in this agricultural center of the state. Each day, 97,600 vehicles pass over the interchange on I-5. Marion County’s 2019 traffic count data for Ehlen Road shows a measured Average Daily Traffic volume of 16,100 per day with a truck volume of 3,482 (21.6%). Although not a designated Truck Route, Ehlen Road functions as a major freight corridor in Marion County, carrying an estimated agricultural freight tonnage of 111,400 tons per day. The I-5 northbound ramp terminal with Ehlen Road currently fails to meet ODOT’s adopted mobility target and is very congested during the 30HV, with traffic demand nearly exceeding the capacity of the intersection. At this intersection, it is the stop-controlled northbound left turn that experiences the most delay. The I-5 southbound ramp terminal with Ehlen Road currently meets ODOT’s mobility target, but is approaching failure with a v/c ratio of 0.73 compared to the maximum target of 0.85. Field observations of congestion and vehicle queues support these findings. During the weekday afternoon peak hour, long northbound off-ramp queues are more common. However, both off-ramps frequently experience long vehicle queues throughout the day that back up to the high-speed freeway mainline. ODOT’s existing traffic conditions analysis reports a total average current delay of 20 seconds per vehicle on Ehlen Road. The Diverging Diamond Interchange will mitigate this delay for all trucks accessing the freeway at Ehlen Road, eliminating more than 19.3 hours of cumulative truck delays every day and increasing the freight capacity of the interchange by about 11%. The two travel service centers and the largest number of truck parking spaces along I-5 in Oregon draw a high volume of large trucks to the interchange. Their slow acceleration and turning movements affect county roads and I-5. Travel Centers of America operates a truck stop in the northwest quadrant of the interchange that includes two truck service bays, truck maintenance services, and 275 truck parking spaces. Flying J operates a truck stop in the southwest quadrant of the interchange that has 105 parking spaces. Both have a gas station and amenities for long-haul

Businesses located at the interchange.


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truckers and the traveling public. The 9‑acre, 130-space Aurora Acres RV Resort is in the southwest quadrant, and uses Dolores Way for access. Western Mountain Transport, south of the RV park, provides trucking services for heavy equipment, oversized hauling, less-than-truckload, and general commodities. The business intends to expand at its location. Jubitz operates a fueling station east of the RV park. Other businesses in the immediate vicinity of the interchange include: truck services such as truck washing, repair, and tire maintenance; RV storage; screen printing; custom home developers; auto parts retail; concrete accessories and supplies; countertop manufacturers; and agricultural supplies. The Interchange is also the nearest direct access from I-5 to Aurora State Airport (KUAO), located approximately 3 miles from the Interchange. Aurora State is the third-busiest airport in Oregon, just behind Portland International and Portland-Hillsboro. It is situated on approximately 144 acres, is the largest of the State-owned airports and accommodates a significant amount of business jet and training activity. Major area employers include Mentor Graphics, Convergys, Xerox Corporation, Sysco Food Services, and Rockwell Collins. The Airport also regularly accommodates air ambulance activity. The Airport is home base to approximately 346 private and corporate aircraft and accommodated 94,655 annual operations. The Aurora State Airport is also in the process of re-zoning 16.5 acres of existing farmland on the east edge of the airport to public use. This re-zone will support airport-related commercial or warehouse uses and additional hangar space. A traffic impact study submitted to the County for the proposed re-zone estimates 1,251 net new average daily trips on surrounding roads, including Ehlen Road leading to the project interchange. (d) Environmental Sustainability Queuing and congestion, particularly for truck traffic, contributes to emissions and poor air quality. As described in Section IV 1 (c), over 16,000 vehicles (21.6% trucks) per day traverse the interchange with an average delay of 20 seconds per vehicle. Unfortunately, the current configuration cannot accommodate current and growing travel demands through these corridors. Both of the off-ramps frequently experience long vehicle queues throughout the day that back up to the high-speed freeway mainline. The combination of several truck stops, the largest number of truck parking spaces along I-5 in Oregon, and high levels of freight traffic on Ehlen Road at this interchange severely inhibits freight and passenger vehicle mobility. This congestion causes significant unnecessary fuel use and harmful emissions. Compared to both the No Build and Phase 1 Only Alternatives, the project will contribute toward environmental sustainability by significantly reducing congestion and congestion-related emissions. The Project BCA anticipates $148,915 in environmental benefits, eliminating more than 19 hours of daily truck delay and associated diesel emissions. Decreased travel time will improve air quality, save 1.9 million gallons of fuel and reduce greenhouse gas emissions by reducing NOx by 37.5 tons; VOCs by 18.5 tons; PM2.5 by 3.2 tons; SOx by 2.3 tons; and CO2 by 23,038 tons.

https://www.oregon.gov/odot/About/BUILD/Aurora%20Airport%20Rezone%20TIA.pdf


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VEHICLE HOURS OF DELAY (DAILY)

Intersection Year 2022 Year 2042

No-Build

Phase 1

BUILD Proposal

No-Build

Phase 1

BUILD Proposal

Old Ehlen Rd /New Ehlen Rd - - 0.2 - - 1.7 Ehlen Rd / Bents Ct 20.7 - - 48.0 - - Ehlen Rd / Bents Rd / Bents Ct - 814.0 217.3 - 2,041.7 438.7

Old Ehlen Rd / Bents Ct - - 5.9 - - 8.3 Ehlen Rd / I-5 SB Ramp 108.8 192.7 67.5 1,161.1 493.7 136.9 Ehlen Rd / I-5 NB Ramp 128.9 421.5 46.5 808.9 944.8 86.1 Ehlen Rd / Dolores Wy 19.0 33.1 16.8 82.7 184.5 85.0 Total (rounded) 277 1,461 354 2,101 3,665 757

Although the proposed project will result in an increase in pollutant-generating impervious surface, it will also construct storm water treatment facilities to remove pollutants from both the new impervious surface and the existing impervious surface. As a result, the total pollutant load emanating from the highway system will be substantially reduced by the project, which proposes to construct seven water quality swales, several thousand linear feet of bioslopes, and five detention ponds. The project involves a total of 32.8 acres of pollutant-generating impervious surface, all of which will be treated. The project will not be constructed in an environmentally sensitive area. It has been strategically designed to avoid any habitat areas and will be constructed in full compliance of best practices to avoid any detrimental impact. ODOT has determined it is a Class 2 Action: Categorical Exclusion (CE) because of its minor right-of way and natural resources impacts, and lack of public controversy. (e) Quality of Life While the Project’s utility for I-5 will produce significant regional, and national benefits, its rural location represents a unique opportunity for USDOT’s investment to directly benefit rural communities as well. The population estimate of the area within a 3-mile radius of the interchange is approximately 6,750. The closest neighboring incorporated communities of Donald (979), Aurora (918), and Hubbard (3,501), have a combined 2010 census population of 5,398. Regular congestion and lack of transportation choices limits access and connectivity to essential services, hinders economic development and private investment, and contributes to a reduction in standard of living for rural residents and travelers. Quantifiable, conservative quality of life benefits primarily from reduced fuel use and vehicle maintenance costs total more than $445,000 for the full project, and more than $1.8 million compared to completing Phase 1 by itself. Approximately 3 miles away from the Interchange are the North Marion School District offices and Pre-K through 12th grade campus. The North Marion School District 15 serves over 2,000 students from a 57 acre rural area, including the communities of Donald, Aurora, and Hubbard.


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The District has a diverse population including approximately 40% of Hispanic origin. During peak times, students, staff, and parents are forced to navigate the unsafe bottleneck at the interchange. The interchange is also a primary access to Champoeg State Heritage Area, a 622 acre state park approximately 4 miles west of I-5. At this site in 1843, territorial settlers established a provisional government primarily composed of American officials which served as a precursor for the determination that the Oregon Territory (Oregon, Washington, Idaho, and parts of Montana and Wyoming) should fall under the control of American rule rather than British. Each year, Champoeg attracts over 520,000 visitors and over 84,000 overnight campers and is a popular destination for recreational cyclists from around the region. According to Strave Heatmap data (figure below), Champoeg shows up as a “hot” destination, but the routes that cyclists are currently taking are both north and south of Ehlen Rd. This data indicates that the project area is potentially viewed as a barrier or a higher stress route choice, even if it provides a more direct route from nearby communities.

Immediately adjacent to the project site is an RV Park on Dolores Way, just east of several retail/employment destinations on the west side of the interchange. Residents on the east side currently do not have a comfortable biking or walking connection to the amenities just west of them and likely choose to drive this short and often congested route. Phase 1 of the project would begin address this gap, adding traffic signals, ramps and shoulders, but the biking and walking gaps would not be completely closed. This proposal, however, would complete a lower-stress facility - providing a connected bicycle and pedestrian network including a combination of


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widened shoulders, sidewalks, and a section of separated multi-use path - from the RV Park to local retail, amenities, employment destinations. Increased Transportation Choices Mobility and safety benefits of the project will improve vehicular and non-vehicular access to the area’s schools and parks and recreation attractions. A Pedestrian Level of Traffic Stress (LTS) assessment was completed for the study area to characterize the quality of the pedestrian environment. The entire study area was rated as having Medium to High stress pedestrian environments with the exception of the east side of Dolores Way, where sidewalks are present on this low-speed street. High stress environments are present where no sidewalks exist or where sidewalks are curb-tight with no buffer from high- speed traffic. Where sidewalks were present on Bents Court, the pedestrian stress was reduced to Medium because of the separation from motor vehicles a sidewalk provides for people walking. In general, Ehlen and Bents Roads are the most stressful (LTS high), due to their lack of separated pedestrian facilities or sidewalks immediately adjacent to high-speed roadways. Bicycle LTS analysis was also conducted to characterize the bicycling experience within the study area. For this analysis Ehlen Road, Bents Court, Bents Road, and Dolores Way within the study area were analyzed. In general, Ehlen and Bents Roads have the highest LTS due to the speed of adjacent traffic (35 MPH+). This Project will significantly improve (lower) the bicycle and pedestrian LTS in the area. Once completed, a combination of sidewalks, widened shoulders, and a separated bicycle and pedestrian path (multi-use path) will be constructed – resulting in a lower-stress connection for local residents off of Dolores Way (east side of the freeway) to various retail and employment destinations on the west side of the freeway. In addition, these improvements could also serve cyclists traveling from communities east of the freeway to destinations like Champoeg State Park.

(2) Secondary Selection Criteria (a) Innovation The Project will incorporate innovative strategies in all three BUILD-identified innovation categories:

1. The deployment of innovative technology; 2. The use of innovative permitting, contracting, and other project delivery practices; and 3. Innovative financing.

The NB exit ramp is a stop controlled, single lane ramp on which vehicles regularly line up side-by-side with

no pedestrian facilities.


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The project also applies innovation in design by implementing a DDI design. Crossover intersections are the characteristic that makes DDIs unique, and drivers find them to be very intuitive. The crossovers gently transition—or diverge—traffic from the right side of the road to the left side of the road and then back again. Because traffic is on the left side between the crossovers, all left turns occur without crossing opposing traffic. ODOT has experience implementing this type of interchange, as shown by this video of the Fern Valley DDI in southern Oregon. This innovative design alternative has the following benefits compared to a traditional interchange:

1. Signalization—The DDI requires fewer signal phases than a conventional interchange. 2. Traffic Flow—The DDI design allows for free left turns on and off of I-5, thus reducing

backups and queuing. The DDI design accommodates the large truck movements that are prevalent at this interchange.

3. Safety—The DDI reduces vehicle-to-vehicle conflict points by nearly 50% and eliminates many of the most severe crash types.

4. Cost Savings—This design requires less right-of-way, which is limited on this project, and fewer lanes than a traditional interchange design, yielding a substantial savings compared to the cost of traditional intersections.

The Project utilizes most EDC Innovation Techniques identified by the FHWA Center for Accelerated Innovation. The EDC Innovation Techniques associated with each innovation category are identified below. (i) Innovative Technologies The Project incorporates innovative technology guided by the following EDC Innovation Techniques: Using Data to Improve Traffic Incident Management; Intersection and Interchange Geometrics; and Data-Driven Safety Analysis. While the Diverging Diamond Interchange concept is an innovative solution in itself, the project will include innovative technologies including Intelligent Transportation Systems (ITS) features such as conflict detection and mitigation, and dynamic signaling to enhance safety and reduce congestion. New traffic signals will be installed at the intersections of Ehlen Road and both I-5 ramp terminals, and at the realigned Ehlen Road – Bents Road intersection. The new signals will employ conflict detection and mitigation technologies. All new traffic signals will use Advanced Transportation Controllers (ATCs), which are capable of performing many ITS functions, and radar for both stop bar and advance detection. A new 50-foot-tall camera pole will be installed at the interchange. It will have two fixed-view traffic cameras. One camera will be pointed at the I-5 southbound exit ramp, and the other will be pointed at the I-5 northbound exit ramp. These cameras will capture still images, and will be used to remotely monitor operations and queuing to improve safety. These monitoring capabilities will enable ODOT to provide advance messaging on an existing variable message sign located 2 miles south of the interchange on I-5. The project will also add traffic signal

https://www.youtube.com/watch?v=b01H54zLV0s

https://www.fhwa.dot.gov/innovation/everydaycounts/edc_innovation.cfm

https://www.fhwa.dot.gov/innovation/everydaycounts/edc_4/timdata.cfm

https://www.fhwa.dot.gov/innovation/everydaycounts/edc-2/geometrics.cfm

https://www.fhwa.dot.gov/innovation/everydaycounts/edc-2/geometrics.cfm

https://www.fhwa.dot.gov/innovation/everydaycounts/edc_4/ddsa.cfm


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interconnect in new underground conduit along Ehlen Road between Bents Road and the I-5 northbound ramp. This new interconnect will connect to each of the new traffic signal controllers, and will allow for changes in signal timing and viewing of CCTV camera images. The new signal/ITS software will modify signal phasing by time of day and even by gap dependency to maximize freight mobility efficiency in real time. In support of this technology, new fiber optic signal interconnect will be installed in a new underground conduit along the corridor. This new interconnect will connect to each of the new traffic signal controllers and will be accessible remotely via a cellular connection to allow for changes in signal timing and viewing of CCTV camera images. The fiber optic signal interconnect system will be designed per current ODOT practices and standards and coordinated with ODOT ITS Engineers. As the entity responsible for Oregon’s system of highways, roads and bridges, railways, public transportation services and more, ODOT has the experience, capacity and credibility to deliver the innovative components of this project. ODOT manages and maintains the vast majority of Oregon facilities in the National Highway Freight Network, as well as $1.4 billion in funding annually. ODOT has extensive accountability mechanisms to ensure on-time project delivery and effective funding expenditures when granted funding. ODOT uses program management tools, including project tracking, financial management systems, and change management processes, to effectively deliver projects on time and on budget. An independent study that examined 39 states in 2011 ranked ODOT the top state in the nation for bringing projects in under budget. (ii) Innovative Project Delivery The Project utilizes innovative project delivery methods guided by the following EDC Innovation Techniques: Programmatic Agreements; Implementing Quality Environmental Documentation; Planning and Environmental Linkages; Clarifying the Scope of Preliminary Design; and Flexibilities in Utility Accommodation and Relocation. ODOT pioneered the use of DOT-funded Permitting/Authorization Agency Liaisons to promote interagency cooperation, improve permit compliance, and make the permitting timelines of federal-aid projects more reliable. ODOT is using this approach to permit the Project, along with existing programmatic agreements for Endangered Species Act (ESA) consultation to streamline the permitting processes. Oregon’s Federal-aid Highway Program programmatic agreement covers most federally funded transportation projects that affect ESA Section 7 consultation and Magnuson-Stevens Act consultation with the National Marine Fisheries Service for federal threatened and endangered aquatic species, and terrestrial and aquatic species administered by the U.S. Fish and Wildlife Service. ODOT has defined the Area of Potential Impact (API) and prepared the permitting documents (see the Interchange Area Inventory Technical Memorandum) to include full build-out in order

https://www.fhwa.dot.gov/innovation/everydaycounts/edc-2/programmatic.cfm

https://www.fhwa.dot.gov/innovation/everydaycounts/edc-2/iqed.cfm

https://www.fhwa.dot.gov/innovation/everydaycounts/edc-1/PEL.cfm

https://www.fhwa.dot.gov/innovation/everydaycounts/edc-1/prelimdesign.cfm

https://www.fhwa.dot.gov/innovation/everydaycounts/edc-1/utility.cfm

https://www.oregon.gov/ODOT/GeoEnvironmental/Pages/ESA.aspx

https://www.co.marion.or.us/PW/Engineering/INFRAGrant/Documents/K19062_InvTechMemo_FINAL(3).pdf


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to ensure that the project is positioned to incorporate BUILD funding with no delay. Early coordination with area utilities, including Bonneville Power Administration (BPA), is already underway to assess and minimize utility impacts. (iii) Innovative Financing The Project utilizes innovative financing methods guided by the Project Bundling EDC Innovation Technique. The expansion of ODOT’s existing project to complete the construction of the Diverging Diamond Interchange using BUILD funds will have the same effect as other forms of project bundling, because the project will complete the work that otherwise would be slated for two separate projects at a greatly accelerated schedule and lower total cost. This project will leverage BUILD funding by providing a very high match (34.7% BUILD funds versus 65.3% matching non-BUILD funds) and a total local match of more than 49% in state funding. None of the matching funds are speculative. Every dollar of matching funds has already been programmed into the 2021–2024 Draft Oregon Statewide Transportation Improvement Program (STIP). Primary state funding is provided by HB2017, an innovative transportation funding package that: (1) provides new funding for projects such as the I-5 Aurora-Donald Interchange Project, (2) includes incremental tax increases of $0.02 per gallon every two years, and (3) requires road authorities across the state to demonstrate beneficial use of the funding by meeting expenditure targets every two years as a prerequisite for the next incremental tax increase. HB2017 allocated $34.3 million in state gas tax dollars to the project. (b) Partnership The Project has been a high priority of ODOT and Marion County for over a decade, and has been a collaborative effort from the start. Since receiving partial funding for the Project in 2018, ODOT initiated the Project in partnership with Marion County, the cities of Aurora and Donald, and the Mid-Willamette Valley Area Commission on Transportation (MWACT). In January 2019, ODOT and Marion County (project team) developed a public involvement and communications plan to provide a framework for building awareness about the project, gathering public feedback at key milestones, and supporting the Interchange Area Management Plan process. The public involvement goals were to:

• Communicate complete, accurate, understandable and timely information to the public throughout the project.

• Help the public understand the Interchange Area Management Plan (IAMP) and its role in the interchange improvement project.

• Actively engage all affected and interested stakeholders about the current challenges of the interchange and gather input on design alternatives for improving it.

https://www.fhwa.dot.gov/innovation/everydaycounts/edc_5/project_bundling.cfm

https://www.oregon.gov/odot/About/BUILD/HB2017FactSheet.pdf

https://www.oregon.gov/odot/About/BUILD/DraftPublicInvolvementPlan.pdf



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• Prepare the public for the impact of construction and work toward mitigation of construction impacts, such as access issues, time of year, etc. (although outside of design, stakeholders will be concerned with future construction).

In 2019, the Project team formed a 54-member Stakeholders Engagement Group made up of property owners, interchange business representatives, other business and industry representatives, a City Councilor, and city staff members. The Stakeholders Engagement Group serves as a sounding board to ensure the Project team is aware of and considering a variety of issues during design and in preparation for construction. In addition, more than 20 meetings were held with constituent groups. The Project team also established a Project website, sends postcard mailings, sends GovDelivery emails to the interested parties list, shares information via local agency social media, and published an article in the Statesman Journal newspaper. The main concerns expressed by local stakeholders are:

• Ensuring safety on area county roads; • Maintaining shortest access for trucking-related commercial businesses; • Preventing the inducement of more traffic onto local county roads; • Mitigating the effect of Dolores Way realignment on potential redevelopment; and • Ensuring that farm equipment would have similar access in the future.

The Project team integrated public comments and concerns into the project by adjusting the design to accommodate the realignment of Bents Road where it connects near the Travel Centers of America, which stakeholders had requested. The realignment eliminated the need for a new internal circulation plan on the site. The Jubitz fuel station near Aurora Acres RV park and adjacent property owners are supportive of a solution that serves all properties when Dolores Way is realigned. In addition, Flying J requested that its right-out only access be maintained until the full project is in place. The Diverging Diamond Interchange design accommodates all these stakeholders’ needs. ODOT is the applicant and will be responsible for all aspects of project completion and has a long history of successfully completing federal funded transportation projects. ODOT originated in 1913 when the Oregon Legislature created the Oregon Highway Commission. ODOT is responsible for Oregon’s system of highways, roads, and bridges; railways; public transportation services; transportation safety programs; driver and vehicle licensing; and motor carrier regulation. The money used to preserve, improve, and operate Oregon’s transportation system comes from several major sources including, but not limited to, motor vehicle registration and title fees, driver license fees, motor vehicle fuel taxes, the weight-mile tax, and federal funding. Marion County, the project partner, is in ODOT Region 2, the Willamette Valley and North Coast. USDOT’s investment would leverage over $35 million in non-Federal funding and provide the final component of funding needed to complete this critical project, including over $5 million in


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previously-incurred planning costs. While no local match is required for rural projects, the State of Oregon’s investment represents approximately 45% of future eligible project costs. Illustrating the wide range of support for the project are letters of support from private, public, and nonprofit organizations that are included as an attachment to this application.

v. Environmental Risk (a) Project Schedule ODOT has positioned the I-5: Aurora-Donald Interchange to accept and make immediate use of federal BUILD funds. The DDI was selected after a thorough alternatives analysis. The project will be located primarily within project parties’ right-of-way, and regulatory agencies have indicated that the project will be granted a National Environmental Policy Act (NEPA) Categorical Exclusion. The project will not displace any residences or businesses, and in anticipation of BUILD funding, the process to acquire ROW for the entire project is well underway.

https://www.oregon.gov/odot/About/BUILD/Letters%20of%20Support.pdf


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The Project will begin and complete construction in a timely manner. All necessary activities will be complete well in advance of the September 20, 2022 statutory deadline for the obligation of funds. Not only will construction funds be obligated well before the BUILD deadline, ODOT expects construction will be more than 50% complete by that date. ODOT has already completed the following Preliminary Engineering activities, studies and reports as a part of its existing Phase 1 project:

• Alternatives Analysis

• Value Engineering Study

• Public Outreach Plan

• Traffic Analysis, Existing and Future

• Draft 30% Design Acceptance Package for the existing Phase 1 project

• Construction Schedule

The following Preliminary Engineering activities will be completed in Spring 2020:

• Draft 30% Design Acceptance Package for full build-out of the DDI

• Draft Interchange Area Management Plan

Immediate, short-term work outside of the scope of this proposal and matching funds is underway to alleviate problems at the interchange. As part of the agreement by the state to allocate $12.75 million in Leverage Grant, Enhance and Fix-It funds, the project parties were required to develop “quick hits” to address the safety and queuing problems at the interchange in the spring and summer of 2020. The current cost estimate for the quick hits is $582,000. They include:

• Widening the southbound exit ramp shoulder; • Installing a southbound queue detection system, with signs added along southbound I-5;

and • Improving the northbound ramp terminal by installing all-way stops at the intersection,

including stop bars, oversized stop signs, double advanced stop signs, and a flashing beacon at the intersection with yellow flashers on advanced signs, consistent with Federal Highway Administration (FHWA) research that ground-mounted flashers are more effective.

https://www.oregon.gov/odot/About/BUILD/Alt_Selection_TechMemo_121719FinaltoODOT.pdf

https://www.oregon.gov/odot/About/BUILD/FinalValueEngineeringStudyReport.pdf



https://www.oregon.gov/odot/About/BUILD/K19062_DAP.pdf

https://www.oregon.gov/odot/About/BUILD/DraftDAPConstructionSchedulePhase1.pdf


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(b) Required Approvals 1. Environmental Permits and Reviews National Environmental Policy Act (NEPA) Status ODOT has determined that the project is a Class 2 Action: Categorical Exclusion (CE) because of its minor right-of way and natural resources impacts, and lack of public controversy. The CE Closeout is being prepared and is scheduled to be completed on May 25, 2020. The project reasonably anticipates receipt of the CE based on the reconnaissance and survey work conducted by ODOT. Reviews, Approvals, and Permits by Other Agencies and Environmental Studies As part of the preparation of the Project CE and Interchange Area Management Plan for the interchange, the Project also completed resource reports, inventories and a NEPA status report in May 2019. Public Engagement To solicit public input, ODOT’s project team formed a 54-member Stakeholders Engagement Group representing more than 25 stakeholder groups. Over 20 meetings were held with constituent groups to solicit feedback, and complete a comprehensive alternatives analysis that has been incorporated into the design. The analysis determined the preferred alternative for this project to be the proposed Diverging Diamond Interchange. 2. State and Local Approvals. The Project has the broad and long-term support of state and local officials, agencies, and stakeholders. The Project has been identified for decades. ODOT’s Phase 1 project is identified in the 2021-2024 Draft STIP as Key Number 19062. The Oregon Freight Plan in Appendix I, Highway Inventories of Need, identifies I-5 from M.P. 263.2 to M.P. 282.3 (this project is at M.P. 278.70) in Marion County as having “unreliability on I-5 south of Wilsonville.” And in Table 9‑11, Freight Impacts on Highway, it identifies “Aurora Donald Interchange design and heavy freight volumes create safety issues with all vehicles entering/exiting I-5 and increases the potential for all vehicles to back up onto I-5.” Table 9-9, Phase 1 and 2 Seismic Bridges, lists the bridges spanning over Ehlen Road as needing seismic retrofit. An Interchange Area Management Plan (ODOT’s long-term [20+ years] transportation facility plan) establishes an agreement with local government about what, if any, transportation solutions or land use/policy actions are needed in an interchange area, and how best to balance and manage transportation and land use issues over time. It is an important tool in protecting the function and operations of state highway interchanges and the supporting local street network. For the I-5 Aurora-Donald IAMP, transportation-land use strategies and a draft access management plan have been developed. Once the IAMP is completed, the Oregon

https://www.oregon.gov/odot/About/BUILD/NaturalResourceSummary.pdf

https://www.oregon.gov/ODOT/STIP/Documents/2021-2024_STIP_Draft.pdf

https://www.oregon.gov/ODOT/Planning/Documents/OFP-2017-Amended.pdf

https://www.co.marion.or.us/PW/Engineering/INFRAGrant/Documents/K19062_IAMP_LU_Strategies_12.20.19.pdf


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Transportation Commission will review the IAMP for adoption as a state facility plan and amendment to the Oregon Highway Plan. Marion County will adopt the IAMP as a refinement plan to the Rural Transportation System Plan (TSP), adopt comprehensive plan policies to support the IAMP, adopt zoning or other management ordinances to implement actions specified in the IAMP, and/or accept the IAMP through a compatibility determination letter. The Mid-Willamette Valley Area Transportation Commission, which is chartered by the Oregon Transportation Commission, has identified this project as one of four high priority projects in the region and reaffirmed this identification in 2019. The Marion County Rural Transportation System Plan, in Table 8-19, State Highway Safety Needs, recommends improving or redesigning the interchange to address “accidents; poor alignment between interchange and Bents Rd; turns from ramps with low capacity and high delay.” Table 8-26, County Roads Restricted by State Highway Structures, identifies I-5 on Ehlen Road as a height restricted overcrossing and recommends improvements. The realignment of Bents Road at Ehlen Road is programmed in the 2013 Marion County Rural TSP as a 20-year funded project, Prioritization Number 32, with an associated cost of $1.1 million. The realignment of Bents Court has been included in the Marion County Rural TSP for many years. Regarding local land use permits for the county roadway improvements, the Marion County Department of Public Works issued a memorandum on July 11, 2019, that outlines the process for permitting relocation of an existing roadway in a resource zone. Included with this application are letters of support from state and local officials and agencies, businesses, property owners, and stakeholder groups. 3. Federal Transportation Requirements Affecting State and Local Planning.

• This is not a port, freight, rail, or intermodal project, and it is not located at an airport facility.

• The project is included in all relevant state and local planning documents, as detailed in the “State and Local Approvals” section.

• This project supports freight movement at the interchange and is included in the Oregon Freight Plan, as detailed and linked in the “State and Local Approvals” section above.

• This project does not involve other modal administrations beside FHWA. (c) Assessment of Project Risks and Mitigation Strategies A June 2019 Value Engineering Study for the Project included a project risk register. Based on that study and project resource reports, the project team has identified four potential material risks since June 2019. None is anticipated to delay the project, because all of the identified risks have been or can reasonably be mitigated. The Project team has reduced the likelihood of environmental uncertainties by preparing reconnaissance-level reports. The non-Federal local match (state funding) is committed, construction of the “quick hits” will commence this spring,


https://www.co.marion.or.us/PW/Engineering/INFRAGrant/Documents/FinalValueEngineeringStudyReport.pdf

https://www.co.marion.or.us/PW/Engineering/INFRAGrant/Documents/K19062_InvTechMemo_FINAL(3).pdf


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and construction of the full project will follow if allocated BUILD funding. The project is programmed in state and local transportation plans, as described above. The following sections discuss the four identified project risks and mitigation measures implemented by the Project team. Bonneville Power Administration (BPA) Facilities and Easement BPA has two transmission line easements from the original property owners in the area that create a 125-foot-wide easement parallel to I-5. Through an agreement, BPA grants the State of Oregon use of the land. The agreement adjusted and modified the respective right-of-way lines “to permit the crossing of the Government’s easement and right of way with a minimum of conflict.” Currently, there is a power transmission line and a tower adjacent to the west side of I-5 that are not planned to be relocated as part of this Project. The Project includes a new I-5 bridge; new traffic structures including traffic signal poles, illumination poles, and cantilever signs; and demolition of existing infrastructure. Some of these activities will be under or close enough to the overhead transmission lines to require monitoring during construction. The Project has started utility coordination with BPA, and a utility conflict analysis process will address any issues. One of the new retaining walls associated with the interchange would be close to one of the existing towers. The Project design will place the wall as far as possible from the tower. BPA will review the Project plans to ensure that the retaining wall will not interfere with the tower. This risk has been mitigated through ongoing design work. Utilities Several utility transmission lines cross the interchange area. The project will minimize impacts to utility facilities through design and construction avoidance measures. Coordination with utility providers has occurred at various points in design development and will continue through construction, as necessary. Anticipated utility impacts include:

• Impacts are anticipated to the Northwest Natural Gas line for work along Ehlen Road. Portland General Electric (PGE) has aerial facilities within the project area. Poles will be affected by the widening of Ehlen Road and by bridge construction where the lines cross I-5.

• CenturyLink has four conduits: two separate underground conduits that cross I-5 and two underground conduits in the north shoulder of Ehlen Road heading west from I-5. These latter two also run above ground and are attached to the PGE poles. CenturyLink’s facilities will be affected by road widening and the realignment of Bents Road. Bridge construction will affect CenturyLink’s two underground crossings at I-5.

• Wave Broadband aerial facilities will be affected by road widening and the realignment of Bents Road. Bridge construction will affect Wave Broadband’s underground crossing at I-5.

• The project is not anticipated to impact Fargo Interchange Service District’s sanitary facilities except for the need to adjust manhole lids to accommodate minor grade changes along Ehlen Road.


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Cable Barrier An existing highway cable barrier separates I-5 northbound and southbound traffic in the project area. Construction may potentially disturb the anchor points. If necessary, the cable barrier will be replaced, which is included in the construction budget. Right-of-Way Acquisition Right-of-way is tight for the project footprint along the I-5 exit ramps and along Ehlen Road near the RV park. The Project design will avoid permanent right-of-way impacts at these locations.

vi. Benefit Cost Analysis The Project Benefit-Cost Summary and Analysis was prepared by ODOT’s Senior Transportation Economist, Jack Svadlenak, in accordance with the NOFO. The analysis yields an overall BCR of 1.26 for the overall project, and an incremental BCR of 4.59 for the Project scope required to take the Project from ODOT’s current Phase 1 project scope to full build-out of the Diverging Diamond Interchange; the scope directly associated with this BUILD grant application. The incremental project yields a Net Present Value of $63.8 million. The analysis accounts for travel time savings, vehicle operating cost savings, safety costs for both existing users of the new facility and potential traffic increases resulting from increased interchange capacity, all utilizing a real discount rate of 7%. The analysis also accounts for the full costs of developing, constructing, operating and maintaining the new interchange. Refer to the Benefit-Cost Summary and Analysis for a comprehensive summary of assumptions, methodology, source data and value of key parameters used in the analysis. The DDI alternative is simultaneously the lowest cost of the 9 interchange alternatives studied by ODOT and the interchange configuration with the most durable mobility and safety performance over the design life of the Project. The completed Project will provide safer and more efficient access to existing and future businesses within the interchange area, as well as bedroom communities of St. Paul, Donald, Hubbard and Aurora, which have a combined residential development capacity of more than 1,800 homes within their urban growth boundaries. The Project is a truly cost-effective solution that will transform freight mobility and commuter transportation on I-5 in north Marion County.