PUBLIC REVIEW DRAFT

2023 Regional
Transportation Plan
A blueprint for the future of transportation in
the greater Portland region

July 10, 2023 [Link]/rtp

Metro respects civil rights

Metro fully complies with Title VI of the Civil Rights Act of 1964 that requires that no person be
excluded from the participation in, be denied the benefits of, or be otherwise subjected to
discrimination on the basis of race, color or national origin under any program or activity for which
Metro receives federal financial assistance.

Metro fully complies with Title II of the Americans with Disabilities Act and Section 504 of the
Rehabilitation Act that requires that no otherwise qualified individual with a disability be excluded
from the participation in, be denied the benefits of, or be subjected to discrimination solely by
reason of their disability under any program or activity for which Metro receives federal financial
assistance.

If any person believes they have been discriminated against regarding the receipt of benefits or
services because of race, color, national origin, sex, age or disability, they have the right to file a
complaint with Metro. For information on Metro’s civil rights program, or to obtain a discrimination
complaint form, visit [Link]/civilrights or call 503-797-1536.

Metro provides services or accommodations upon request to persons with disabilities and people
who need an interpreter at public meetings. If you need a sign language interpreter, communication
aid or language assistance, call 503-797-1700 or TDD/TTY 503-797-1804 (8 a.m. to 5 p.m. weekdays) 5
business days before the meeting. All Metro meetings are wheelchair accessible. For up-to-date
public transportation information, visit TriMet’s website at [Link].

Metro is the federally mandated metropolitan planning organization designated by the governor to
develop an overall transportation plan and to allocate federal funds for the region.

The Joint Policy Advisory Committee on Transportation (JPACT) is a 17-member committee that
provides a forum for elected officials and representatives of agencies involved in transportation to
evaluate transportation needs in the region and to make recommendations to the Metro Council.
The established decision-making process assures a well-balanced regional transportation system
and involves local elected officials directly in decisions that help the Metro Council develop regional
transportation policies, including allocating transportation funds.

Regional Transportation Plan website: [Link]/rtp

The preparation of this strategy was financed in part by the U.S. Department of Transportation,
Federal Highway Administration and Federal Transit Administration. The opinions, findings and
conclusions expressed in this strategy are not necessarily those of the U.S. Department of
Transportation, Federal Highway Administration and Federal Transit Administration.
 7/10/23

2023 REGIONAL TRANSPORTATION PLAN | LIST OF CONTENTS

Executive Summary
This section provides an overview of the plan, how it was developed, key trends and challenges it will
address and the outcomes it will deliver. The executive summary is a standalone document for the public
review draft plan.
Chapter 1 | Toward a Connected Region
This chapter introduces the greater Portland region and Metro’s role in transportation planning, how the
plan addresses regional, state and federal requirements, its relationship to other adopted plans and
strategies, and the public process that shaped development of the plan.
Chapter 2 | Our Shared Vision and Goals for Transportation
This chapter presents the plan’s aspirational vision for the region’s transportation system. The vision is
further described through goals, objectives and performance targets that reflect the values and desired
outcomes expressed by the public, policymakers and community and business leaders engaged in
development of the plan. This outcomes-based policy framework guides future planning and investment
decisions as well as monitoring plan implementation.
Chapter 3 | Transportation System Policies to Achieve Our Vision
This chapter defines overarching policies for safety, equity, climate, mobility and pricing as well as the
vision and policies for the modal networks of the regional transportation system – motor vehicle, transit,
freight, bike and pedestrian - and for transportation system management and operations (TSMO) and
transportation demand management (TDM). The policies will help the region make progress toward the
plan’s vision and goals and implementation of the 2040 Growth Concept and Climate Smart Strategy.
Together the policies will guide the development and implementation of the regional transportation
system, informing transportation planning and investment decisions made by the Joint Policy Advisory
Committee on Transportation (JPACT) and the Metro Council.
Chapter 4 | Our Growing and Changing Region
This chapter provides a snapshot of current regional growth trends and existing conditions and outlines
key transportation challenges the plan will address and opportunities for building a regional
transportation system that reflects our values and vision for the future.
Chapter 5 | Our Transportation Funding Outlook
This chapter provides an overview of local, state and federal funding expected to be available to pay for
needed investments.
Chapter 6 | Regional Programs and Projects to Achieve Our Vision
This chapter describes how the region plans to invest in the transportation system, with expected funding.
Chapter 7 | Measuring Outcomes
This chapter reports on the expected system performance of the region’s investment priorities and
documents whether the region achieves regional performance targets in 2045.
Chapter 8 | Moving Forward Together
This chapter describes ongoing and future efforts to implement the RTP, consistent with federal, state and
regional requirements. The chaper summarizes ongoing regional programs, regional and state planning
efforts and major project development activities underway in the region, and data and research activities
to support Metro’s performance-planning responsibilities and plan implementation.
Glossary
Common Acronyms

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APPENDICES
Appendix A Constrained Priorities – Near-term Constrained Project List (2023 to 2030); Long-
term Constrained Project List (2031 to 2045)
Appendix B Unconstrained Priorities – 2031 to 2045 Strategic Project List
Appendix C Federal Air Quality Attainment Status Certification Letter (effective Oct. 2, 2017)
Appendix D Public and Stakeholder Engagement and Consultation Summary
Note: This appendix is under development and will be included in final RTP
Appendices.
Appendix E not assigned
Appendix F Environmental Assessment and Potential Mitigation Strategies
Appendix G Coordinated Transportation Plan for Seniors and People with Disabilities (adopted
in June 2020 by the TriMet Board)
Appendix H Financial Strategy Documentation
Appendix I Performance Evaluation Documentation
Appendix J Climate Smart Strategy Implementation and Monitoring
Appendix K Performance Targets
Note: This appendix will be included in final RTP Appendices.
Appendix L Federal Performance-Based Planning and Congestion Management Process
Documentation
Appendix M Regional Analysis Documentation
Appendix N Southwest Corridor Project Locally Preferred Alternative (adopted Dec. 6, 2018)
Appendix O Earthquake Ready Burnside Bridge Preferred Alternative (adopted March 16,
2023)
Appendix P East Metro Connections Plan (adopted in June 2013)
Appendix Q Sunrise Project Locally Preferred Alternative (adopted in July 2009)
Appendix R I-5/99W Connector Study Recommendations (adopted in Feb. 2009 by Project
Steering Committee)
Appendix S I-5/Columbia River Bridge Replacement Modified Locally Preferred Alternative
(adopted in July 2022)
Appendix T Clackamas to Columbia Corridor Plan (adopted in 2020)
Appendix U Summary of Comments Received and Recommended Actions
Note: This appendix will be developed following the final public comment period
and included in final RTP Appendices.

LIST OF TOPICAL AND MODAL STRATEGIES AND PLANS*

Adoption date
Regional Transportation System Management and Operations Strategy Jan. 6, 2022
Regional Transportation Safety Strategy Dec. 6, 2018
Regional Emerging Technology Strategy Dec. 6, 2018
Regional Freight Strategy Dec. 6, 2018
Regional Transit Strategy Dec. 6, 2018
Regional Travel Options Strategy May 24, 2018
Climate Smart Strategy (incorporated in the RTP in Dec. 2018) Dec. 18, 2014
Regional Active Transportation Plan July 17, 2014

* All strategies and plans were adopted by the Metro Council and Joint Policy Advisory
Committee on Transportation (JPACT).

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Chapter 1
Toward a Connected Region
2023 Regional Transportation Plan
July 10, 2023 PUBLIC REVIEW DRAFT
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TABLE OF CONTENTS
Purpose ...................................................................................................................................................... 1-1

Chapter organization ............................................................................................................................. 1-2

1.1 Introduction ............................................................................................................................. 1-3

1.2. Geographic setting ................................................................................................................... 1-5

1.3 Metropolitan transportation planning process ............................................................................ 1-8

1.3.1 The region has several planning boundaries with different purposes ....................................... 1-12

1.3.2 Metro facilitates the metropolitan transportation planning process through

Metro’s advisory committees .............................................................................................................. 1-13

1.4 Process and engagement overview .......................................................................................... 1-16

1.5 What’s next moving forward? .................................................................................................. 1-19

FIGURES
Figure 1.1 Portland-Vancouver metropolitan region geographic context .................................. 1-5

Figure 1.2 Cities and counties of the Portland-Vancouver metropolitan region ........................ 1-7

Figure 1.3 National goal areas and federal planning factors ....................................................... 1-9

Figure 1.4 How federal and regional transportation policies have evolved since the 1990s ... 1-11

Figure 1.5 Metropolitan planning area boundaries................................................................... 1-12

Figure 1.6 Regional transportation decision-making process ................................................... 1-14

Figure 1.7 Timeline and process for development of the 2023 Regional Transportation Plan 1-16
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PURPOSE
Metro is the metropolitan planning organization (MPO) designated by Congress and the
State of Oregon, for the Oregon side of the Portland-Vancouver urbanized area, serving
1.7 million people living in the region’s 24 cities and three counties. As the MPO, Metro
formally updates the Regional Transportation Plan every five years in cooperation and
coordination with the region's cities, counties, the Port of Portland, the Oregon
Department of Transportation, transit providers and other partners.

The Regional Transportation Plan (RTP) is a blueprint to guide investments in motor

vehicle, transit, bicycle, and walking travel options and the movement of goods and
freight throughout the greater Portland region. The plan identifies the region’s most
urgent transportation needs and priorities with the revenues the region expects to have
available over the next 22 years to make those investments a reality. It also establishes
goals and policies to help meet those needs and guide priority investments. More
resources will be needed to achieve the plan’s vision and address the challenges of a
growing, thriving region.

The policies, projects, and programs in the 2023 RTP helps move the region closer to safe,
reliable, healthy and affordable transportation system that is environmentally
responsible, efficiently moves products to market, and ensures all people can connect to
the education and work opportunities they need to experience and contribute our
region’s economic prosperity and quality of life. Implementing the plan, will take
sustained, focused work from every partner in the region.

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Chapter organization

This chapter is organized into the following sections:

1.1 Introduction: This section broadly describes the Regional Transportation Plan (RTP)
and trends and challenges facing the region that were the focus of this update.
1.2 Geographic setting: This section describes the geographic context of the Portland-
Vancouver metropolitan region.
1.3 Metropolitan transportation planning process: This section describes Metro’s role
in transportation planning and planning areas of responsibility to address state and
federal requirements.
1.4 Process and engagement overview: This section describes the timeline and process
for developing the 2023 Regional Transportation Plan.
1.5 What’s next moving forward: This section provides a brief introduction to the rest of
the plan.

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1.1 INTRODUCTION

The 2023 Regional Transportation Plan demonstrates the need for continued
investment to build, operate and maintain the regional transportation system we
need for all travelers and to meet the region’s equity, safety, climate, mobility and
economic goals.
The 2023 Regional Transportation Plan defines a shared vision and investment strategy
that guides investments to keep people connected and commerce moving throughout the
greater Portland region. The plan is updated every five years to stay ahead of future
growth and address trends and challenges facing the region.

The greater Portland region continues to grow and change, requiring new and expanded
transportation options while maintaining the system of today. One-half million new
residents are expected to live in the Portland region by 2045 – about half from growing
families. Communities are becoming more racially and culturally diverse, and the aging
population is growing. People are shopping and working in new ways that will require
different transportation solutions.

We are at a pivotal moment. The greater Portland region is facing urgent global and
regional challenges. Climate change is happening faster than predicted and the
transportation system is not fully prepared for the expected Cascadia Subduction Zone
earthquake. Technological changes in transportation, communication and other areas are
radically altering our daily lives.

The impacts of climate change, generations of systemic racism, economic inequities and
the pandemic have made clear the need for action. Systemic inequities mean that
communities have not equally benefited from public policy and investments, and our
changing climate and the pandemic has exacerbated many disparities that Black,
Indigenous and people of color (BIPOC) communities, Federally recognized tribes, people
with low income, women and other marginalized populations already experience. Safety,
housing affordability, homelessness, and public health and economic disparities have
been intensified by the global pandemic and continue to be of concern.

As the greater Portland region continues to emerge from the disruptions of the pandemic
and respond to other urgent trends and challenges, this RTP provides an opportunity for
all levels of government to work together to deliver a better transportation future.

The plan takes into account the changing circumstances and challenges facing our
growing region and addresses them directly, adopting new approaches for addressing
mobility and prioritizing investments to advance transportation equity, climate, safety,

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mobility and economic goals. The goals, policies, projects, and strategies in this plan also
address federal, state and regional planning requirements based on our shared values and
the outcomes we are trying to achieve as a region, including implementation of the 2040
Growth Concept.

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1.2. GEOGRAPHIC SETTING
The Portland-Vancouver metropolitan region is part of the broader Pacific Northwest
region, also called Cascadia. Shown in Figure 1.1, the Pacific Northwest encompasses
most of British Columbia, Washington, Oregon and adjoining parts of Alaska, Montana and
California.

Figure 1.1 Portland-Vancouver metropolitan region geographic context

Linked together by a rich and complex natural environment, abundant recreational

opportunities and major metropolitan areas, the Pacific Northwest serves as a global
gateway for commerce and tourism, connecting to other Pacific Rim countries and the
rest of the United States.

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The greater Portland region is situated at the northern end of the Willamette Valley, a
fertile river valley surrounded by dramatic natural features, with the Coast Range to the
west, the Cascade Range to the east, and the Columbia River to the north (including the
Columbia River Gorge National Scenic area). Several snow-capped mountains are visible
from different vantage points in the region, including Mt. Hood, Mt. St. Helens, Mt. Rainier,
and Mt. Adams. Within the region, rivers, streams, wetlands, buttes, forest lands,
meadows and rolling to steep hillsides dominate the natural landscape. Outside the urban
growth boundary, agricultural lands and other natural landscape features influence the
sense of place for the greater region.

Although not the largest gateway on the U.S. West Coast, the Portland-Vancouver
metropolitan region is one of four international gateways on the West Coast, including the
Puget Sound, the San Francisco Bay area and Southern California. In this role, the region
serves as a gateway to domestic and international markets for businesses located
throughout the state of Oregon, Southwest Washington, the Mountain states and the
Midwest. Clackamas, Multnomah and Washington counties also play a significant role in
the state’s agricultural production. The economy of our region and state depend on our
ability to support the transportation needs of these industries and provide reliable access
to gateway facilities.

The Oregon side of the Portland-Vancouver metropolitan region encompasses 24 cities

and the urban areas of three counties as shown in Figure 1.2. Metro’s urban growth
boundary and jurisdictional boundaries are shown in Figure 1.5.

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Figure 1.2 Cities and counties of the Portland-Vancouver metropolitan region

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1.3 METROPOLITAN TRANSPORTATION PLANNING PROCESS
Since 1979, Metro has been the metropolitan planning organization (MPO) designated by
Congress and the State of Oregon, for the Oregon portion of the Portland-Vancouver
urbanized area, covering 24 cities and three counties with a population of 1.7 million. It is
Metro’s responsibility to meet the requirements of federal laws and regulations, the
Oregon Transportation Planning Rule (which implements Statewide Planning Goal 12),
the Oregon Metropolitan Greenhouse Gas Reduction Targets Rule, and the Metro Charter
for the MPO area. Together, these requirements call for development of a multimodal
transportation system plan that is integrated with and determined by the region's land
use plans, and meets federal and state planning requirements.

Metro uses a federally mandated decision-making framework, called the metropolitan

transportation planning process, to guide its regional transportation planning and
programming activities. This planning process requires all urbanized areas with
populations over 50,000 to have a MPO to coordinate transportation and air quality
planning and programming of federal transportation dollars within their boundaries
These activities must address the seven national goal areas and consider projects and
strategies that address the ten federal planning factors shown in Figure 1.3.

The national goal areas and planning factors are addressed throughout the RTP and
appendices, including the plan’s goals and objectives (Chapter 2), policies to guide
development and implementation of the plan (Chapter 3), existing system performance
(Chapter 4), financing the region’s investment priorities (Chapter 5), the region’s
investment priorities (Chapter 6), expected performance (Chapter 7) and planned
implementation and monitoring activities (Chapter 8).

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Figure 1.3 National goal areas and federal planning factors 1

MPOs have responsibility for maintaining the region’s congestion management process
and implementing federal performance-based planning requirements that tied to the
national goal areas. MPOs are required to establish targets related to safety, bridge and
pavement condition, air quality, freight movement, and performance of the National
Highway System, and to use performance measures to track their progress toward
meeting those targets. Appendix L of the RTP documents the region’s approach to
addressing the federal transportation performance-based planning and congestion
management requirements.

As the designated MPO for the Oregon portion of the Portland-Vancouver region, Metro is
responsible for coordinating development of the RTP in cooperation with the region’s
transportation providers —the 24 cities and three counties in the metropolitan planning
area boundary, the Oregon Department of Transportation, Oregon Department of
Environmental Quality, Port of Portland, Port of Vancouver, TriMet, South Metro Area
Regional Transit (SMART), Southwest Washington Regional Transportation Council
(RTC), Washington Department of Transportation and other Clark County governments.
The process also includes opportunities for open, timely and meaningful involvement of
the public, and requires comprehensive consideration of the link between transportation
and other regional goals for land use, the economy and the environment, including public
health, safety, mobility, accessibility and equity. Public engagement and consultation that
shaped development of the 2023 RTP are summarized in this chapter with more details
provided in Appendix D of the RTP.

1
[Link]

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The Metro Council adopted the first RTP in 1983. As a cornerstone of the metropolitan
transportation planning process, the RTP provides a long-range blueprint for
transportation in the Portland metropolitan region with a 20-year minimum time horizon.
The RTP is updated every five years to reflect changing conditions in the region and
respond to new federal and state regulatory developments.

Under state law, the RTP serves as the region’s regional transportation system plan (TSP),
consistent with Statewide Planning Goals and the Oregon Transportation Planning Rule
(TPR). State law establishes requirements for consistency of plans at the state, regional
and local levels. The RTP must be consistent with the Oregon Transportation Plan, state
modal and facility plans that implement the Oregon Transportation Plan, the Oregon
Transportation Planning Rule and the Metropolitan Greenhouse Gas Reduction Targets
Rule. Local plans must be consistent with the RTP. Projects and programs must be in the
RTP’s Financially Constrained System to be eligible for federal and state funding.

Figure 1.4 illustrates how federal and regional transportation policies have evolved since
the 1990s.

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Figure 1.4 How federal and regional transportation policies have evolved since the 1990s

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1.3.1 The region has several planning boundaries with different purposes

Federal and state law requires several metropolitan transportation planning boundaries
be defined and planned for in the region for different purposes. These boundaries are
shown in Figure 1.5.

Figure 1.5 Metropolitan planning area boundaries

First, Metro’s jurisdictional boundary encompasses the urban portions of Multnomah,

Washington, and Clackamas counties.

Second, under Oregon law, each city or metropolitan area in the state has an urban
growth boundary that separates urban land from rural land. Metro is responsible for
managing the greater Portland region's urban growth boundary.

Third, the Urbanized Area (UZA) boundary is defined to delineate areas that are urban in
nature distinct from those that are largely rural in nature. The Portland-Vancouver
metropolitan region is somewhat unique in that it is a single urbanized area that is
located in two states and served by two MPOs. The federal UZA boundary for the Oregon-
portion of the Portland-Vancouver metropolitan region is distinct from the Metro urban
growth boundary (UGB). The UZA boundary is described in the legend of Figure 1.5 as
“Census Urbanized Area (2020).”

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Fourth, MPO’s are required to establish a Metropolitan Planning Area (MPA) Boundary,
which marks the geographic area to be covered by MPO transportation planning
activities. At a minimum, the MPA boundary must include the urbanized area, areas
expected to be urbanized within the next twenty years and areas within the Air Quality
Maintenance Area Boundary (AQMA) – a fifth boundary.

Fifth, the federally-designated Air Quality Maintenance Area Boundary (AQMA) boundary
is the area subject to State Implementation Plan (SIP) regulations. The Portland region’s
AQMA boundary was developed as part of the ozone and carbon monoxide SIPs, which
are pollutants the region had previously violated national air quality standards. In
October 2017, the region achieved attainment status under the Clean Air Act
Amendments. Reaching this milestone means that transportation conformity no longer is
required to be performed in this region. The region continues to comply with other
obligations and requirements outlined in the SIPs.

1.3.2 Metro facilitates the metropolitan transportation planning process through

Metro’s advisory committees

Metro facilitates the metropolitan transportation planning process, which include the
Metro Council and five advisory committees –the Joint Policy Advisory Committee on
Transportation (JPACT), the Metro Policy Advisory Committee (MPAC), Metro’s
Committee on Racial Equity (CORE), the Transportation Policy Alternatives Committee
(TPAC),the Metro Technical Advisory Committee (MTAC). These committees have varying
levels of responsibility to review, provide input and make recommendations on the
development of the RTP. In addition to regular meetings of the Metro Council and
advisory committees, Metro convened periodic joint workshops of TPAC and MTAC, and
joint workshops of JPACT and the Metro Council to shape development of the 2023
Regional Transportation Plan.

Figure 1.6 displays the regional transportation planning decision-making process.

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Figure 1.6 Regional transportation decision-making process

Source: Metro

JPACT is a 17-member committee that provides a forum for elected officials and
representatives of agencies involved in transportation to evaluate transportation
needs in the region and to make recommendations to the Metro Council. The
established decision-making process strives for a well-balanced regional
transportation system and involves local elected officials directly in decisions that
help the Metro Council develop regional transportation policies, including updating
the RTP. TPAC provides input to JPACT at the technical level.

All transportation-related actions (including federal MPO actions) are recommended by

JPACT to the Metro Council. The Metro Council can approve the recommendations or refer

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them back to JPACT with a specific concern for reconsideration. Final approval of each
item, therefore, requires the concurrence of both bodies.

MPAC advises and makes recommendations to the Metro Council on growth

management, land use and other topics of regional interest, including the RTP, at the
policy level. Under the statewide land use planning program, the RTP serves as a regional
transportation system plan (TSP). As a result, the MPAC also has a role in approving the
regional transportation plan as a land use action, consistent with statewide planning goals
and the Metro Charter. MTAC provides input to MPAC at the technical level.

The Metro Committee on Racial Equity (CORE) provides community oversight and
advises the Metro Council on implementation of the Metro’s Strategic Plan for Advancing
Racial Equity, Diversity and Inclusion 2. Adopted by the Metro Council in June 2016 with
the support of MPAC, the strategic plan leads with race, committing to concentrate on
eliminating the disparities that people of color experience, especially in those areas
related to Metro’s policies, programs, services and destinations.

In addition, the Metro Public Engagement Review Committee (PERC) 3 advises the Metro
Council on engagement priorities and ways to engage community members in regional
planning activities consistent with adopted public engagement policies, guidelines and
best practices.

2
Strategic Plan for Advancing Racial Equity, Diversity and Inclusion [Link]
leadership/diversity-equity-and-inclusion/equity-strategy
3
Metro Public Engagement Review Committee (PERC) [Link]
leadership/metro-advisory-committees/public-engagement-review-committee

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1.4 PROCESS AND ENGAGEMENT OVERVIEW
During the past eighteen months, Metro worked with policy makers, federal, state, and
local government partners and transportation agencies, federally recognized tribal
governments as well as community members, community-based organizations,
businesses, business groups and members of the public to develop the 2023 Regional
Transportation Plan (RTP). The result of that work is an updated vision, goals and policies
that guide transportation planning and investment decisions across the region, an
understanding of the region’s transportation trends4, needs5 and 6, priorities for
investment, strategies to help meet those goals and policies, a shared understanding
about available financial resources, and a recommended set of projects that make
progress addressing the region’s significant and growing transportation needs and
challenges.

Figure 1.7 Timeline and process for development of the 2023 Regional Transportation Plan

4 The emerging transportation trends research summary is available at:

[Link]
final_1.pdf
5 Factsheets summarizing the regional transportation needs assessment are available at:

[Link]
[Link]
6 Research about trends and needs of the region’s urban arterials is available at:

[Link]
terials%20policy%[Link]

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How did we get here?

The RTP brought together the input of thousands of people who live, work and travel
across the greater Portland region communities of the greater Portland. Meaningful
engagement and consultation with tribes, community members, community-based
organizations, businesses, transportation agencies and elected officials contributed to a
shared vision and strategy for investing in a transportation system that serves everyone.
Engagement activities centered historically underrepresented communities, including
people of color, youth, and people with limited English proficiency.

The RTP was developed with guidance from Metro Council and the Joint Policy Advisory
Committee on Transportation (JPACT) with support from advisory committees including
The Metro Policy Advisory Committee (MPAC), the Transportation Policy Alternatives
Committee (TPAC), the Metro Technical Advisory Committee (MTAC) and Committee on
Racial Equity (CORE). Integral to this decision-making process were timely opportunities
for the public to provide input.
What have we heard?

Members of the public shared their transportation needs and priorities through online
surveys, forums and events hosted by community based organizations. The people of the
greater Portland region want safe, affordable, and reliable transportation – no matter
where they live, where they go each day or how they get there.
Safety is the top concern.

People are concerned about car crashes while walking and biking. They are also
concerned about personal safety in relation to hate crimes, harassment, violence, and
people’s unpredictable behavior. These especially are concerns for people using transit.
People want to see more investment in lighting, safe places to walk and roll, improved
transit stops and security (not police) in and around transit.
Investing in transit service is a priority.

Communities across the greater Portland region want access to transit that gets them
where they need to go in a reasonable amount of time. Community members want transit
that is accessible, affordable, efficient and frequent. Maintaining streets and sidewalks
that need repair is a priority. Buses and MAX cars need to be maintained to feel safe and
comfortable.
Climate action and resilience is important.

Community members point to major RTP projects that do not do enough to reduce
greenhouse gas emissions. People are concerned about the transportation’s impact on
clean air and ecosystems and want to see investment in transit, walking and biking.

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Community members also express concern about how the transportation system will
adapt to climate change, especially for community members who are most vulnerable to
extreme weather.
Invest in safe and accessible place to walk and roll.

Community members highlighted the many parts of the region need more sidewalks, and
all sidewalks need to be ADA accessible. Community members stress the importance of
making routes to transit stops and stations accessible.
Invest in communities.

Many communities want to see relatively small-scale investments infrastructure,

including local road connections and safety improvements such as lighting and improved
crossings.
Connecting and Collaborating

Since October 2021, numerous groups have gathered to help shape the RTP.
• 14 JPACT meetings
• 19 Metro Council meetings and workshops
• 6 JPACT/Metro Council workshops
• 35 TPAC/MTAC meetings and workshops
• 4 consultation meeting with federals, state and resource agencies
• 6 consultation meetings with tribes
• 2 business forums
• 3 Community Leaders Forums
• 7 community based organizations engaging 300+ community members
• 3 Metro Committee on Racial Equity (CORE) meetings
• 6 High Capacity Transit working group meetings
• 3 online surveys with 3,447 participants
• 41 stakeholder interviews
• 4 forums held in Spanish, Chinese, Vietnamese and Russian
• 1 Focus group with people with limited English proficiency

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1.5 WHAT’S NEXT MOVING FORWARD?
The greater Portland region pioneered approaches to land use and transportation
planning in the past and is uniquely positioned to address the trends and challenges
facing the region – mainly because the region has solid, well-integrated transportation
and land-use systems in place and a history of working together to address complex
challenges at a regional scale.

Today it is time to revisit how we are implementing our vision, make some corrections
and find new strategies and resources to create the future we want for our region. The
rest of this plan represents a new step forward to respond to the changes and challenges
we face and set a new course for future transportation decisions and implementation of
the 2040 Growth Concept and Climate Smart Strategy.

The pages ahead provide an updated blueprint and investment strategy for a more
sustainable transportation system that links land use and transportation, protects the
environment, and supports the region’s economy. Translating our vision into a reality will
not be a simple task – and it will take time. More work is needed, as this plan does not
achieve all the goals we’ve defined. It represents a new step forward for our region.

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Chapter 2
Our Shared Vision and Goals for
Transportation
2023 Regional Transportation Plan
July 10, 2023 PUBLIC REVIEW DRAFT
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TABLE OF CONTENTS
Introduction ................................................................................................................................. 2-1

Chapter organization ................................................................................................................ 2-2

2.1 Outcomes-based framework to guide transportation planning and decision-making ......... 2-3

2.2 Shared vision for the regional transportation system ........................................................... 2-5

2.3 Goals and objectives .............................................................................................................. 2-6

Goal 1: Mobility Options .......................................................................................................... 2-9

Goal 2: Safe System ................................................................................................................ 2-10

Goal 3: Equitable Transportation ........................................................................................... 2-11

Goal 4: Thriving Economy....................................................................................................... 2-12

Goal 5: Climate Action and Resilience.................................................................................... 2-13

2.4 Regional transportation performance targets..................................................................... 2-14

FIGURES
Figure 2.1 Vision for the regional transportation system............................................................ 2-5

Figure 2.2 RTP performance-based planning and decision-making framework ......................... 2-7

TABLES
Table 2.1: RTP performance measures, targets and thresholds at a glance ............................. 2-14
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INTRODUCTION
The 2023 Regional Transportation Plan defines a shared vision for the greater Portland
region’s transportation system that reflects the values and desired outcomes expressed by
the public, policymakers and community and business leaders engaged in development of
the plan.
Transportation shapes our communities and our daily
lives, allowing us to reach our jobs and recreational
opportunities, access goods and services and meet
daily needs. This chapter presents a shared, long‐term
vision and supporting goals, objectives and
performance targets that will guide planning and
building the transportation system serving the
Portland metropolitan region through 2045. The
vision reflects the continued evolution of
Learn more about the 2023
transportation planning from a project-driven
Regional Transportation Plan
endeavor to one that is framed by a broader set of
outcomes that affect people’s everyday lives. at [Link]/rtp

Rapid growth and change across our region have exposed and exacerbated longstanding
economic and racial inequities, threatening to undermine the broader benefits of
economic growth as well as our region’s quality of life. The vision and supporting goals,
objectives and performance targets in this chapter aim to better integrate transportation
and land use efforts to protect the region’s economic prosperity, environmental quality,
and quality of life and improve the lives of the people who call this region home.

To achieve our vision for the future, we must work together to address inequities as we
build vibrant, walkable, bikeable, climate-friendly communities with affordable homes,
provide safe, reliable, healthy and affordable transportation choices that reduce climate
and other air pollution and address growing congestion, and protect critical natural areas
and the irreplaceable farm and forest lands that surround the region.

Achievement of the plan’s vision and goals will occur through partnerships, ongoing
engagement and implementation of a variety of policies, strategies and actions at the
local, regional, state and federal levels. The vision laid out in these pages, will take
sustained, focused work from every partner in the region. The various jurisdictions in the
region are expected to pursue policies, strategies and projects that contribute to achieving
the regional vision and goals of the Regional Transportation Plan (RTP) to ensure an
equitable, prosperous and sustainable future.

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Chapter organization

This chapter is organized into the following sections:

2.1 Outcomes-based framework to guide transportation planning and decision-

making: The section describes the outcomes-oriented performance-based
planning approach the plan uses to link transportation to a broader set of desired
outcomes for vibrant communities, a healthy economy, equity and the
environment. This approach also responds to more recent federal and state
performance-based planning requirements.

2.2 Shared vision for the regional transportation system: This section describes
how the RTP will serve a key role in implementing the 2040 Growth Concept and
supporting local aspirations for growth.

2.3 Goals and objectives: This section lays out five goals and supporting objectives
for the region’s transportation system. The goals and objectives establish policy
and investment priorities that will guide future planning, investment decisions and
monitoring.

2.4 Regional transportation performance targets: This section lays performance

targets for the region’s transportation system organized by the RTP goal areas. The
performance targets are numerical benchmarks to assess the region’s progress in
achieving RTP vision and goals. These targets draw from federal and state
requirements and regional policies, and will guide future planning, investment
decisions and monitoring.

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2.1 OUTCOMES-BASED FRAMEWORK TO GUIDE
TRANSPORTATION PLANNING AND DECISION-MAKING
Maintaining and growing a transportation
system to meet the region’s needs requires
consistent, long-term investment and ongoing DESIRED OUTCOMES
maintenance.
VIBRANT COMMUNITIES – People live,
The planning process provides opportunities work and play in vibrant communities
for individuals and communities to define and where their everyday needs are easily
accessible.
articulate collective desires and aspirations
for enhancing the quality of life in the region ECONOMIC PROSPERITY – Current and
and their communities and identify where future residents benefit from the
investments are most needed to deliver the region’s sustained economic
plan’s vision. It provides an opportunity for competitiveness and prosperity.
communities to take stock of the successes
SAFE AND RELIABLE
that have been achieved through years of TRANSPORTATION – People have safe
coordination and investment. It also requires and reliable transportation choices that
thinking carefully about and being enhance their quality of life.
accountable to future generations, ensuring
LEADERSHIP ON CLIMATE CHANGE –
we get the greatest possible return on public
The region is a leader in minimizing
investments and that everyone benefits from
contributions to global warming.
those returns.
CLEAN AIR AND WATER – Current and
As a major tool for ensuring stewardship of future generations enjoy clean air,
public investments, the Regional clean water and healthy ecosystems.
Transportation Plan (RTP) identifies needed
next steps to achieve each of the six desired EQUITY – The benefits and burdens of
growth and change are distributed
outcomes for the greater Portland region and
equitably.
helps us understand whether we are on the
right track. As adopted by the Metro Council and
MPAC in 2008 by Resolution No. 08-
3940.

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The 2023 RTP continues to broaden the way that outcomes are used to measure success
and define transportation system needs. The plan calls for making transportation
investment decisions based on achieving multiple outcomes to preserve and enhance
quality of life, the economy, and the environment now and for future generations.

This plan updates the outcomes-based policy framework first adopted in 2010, to focus
on five interconnected goals – equity, climate, safety, mobility and the economy. The
region’s six desired outcomes are prominently interwoven into the RTP goals and
objectives, and the policies in Chapter 3 that support those goals.

These goals were used to identify needs and prioritize and evaluate performance of the
investments recommended in this plan. These updated goals and their supporting
objectives (and related performance measures) will also be used to monitor how the
transportation system is performing between scheduled plan updates.

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2.2 SHARED VISION FOR THE REGIONAL TRANSPORTATION
SYSTEM
Transportation planning and investment decisions and the region’s desired land use,
social, economic and environmental outcomes are so interconnected that success of the
2040 Growth Concept hinges significantly on achieving the plan’s goals and objectives.

The Regional Transportation Plan vision statement below presents an aspirational view
of the future of the region’s transportation system that reflects the values and desired
outcomes expressed by the public, policymakers and community and business leaders
engaged in development of the plan.

Figure 2.1 Vision for the regional transportation system

This shared vision for the future provides a benchmark for building a transportation
system that serves all people and businesses in the greater Portland region. This vision
and supporting goals and objectives will serve as a foundation for identifying investment
priorities and policies and measuring progress toward building a transportation system
that delivers the outcomes we want.

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2.3 GOALS AND OBJECTIVES
RTP goals were first adopted in 2010 after significant engagement with communities,
residents, businesses, and stakeholders throughout the region. In 2014, the Metro Council
and the Joint Policy Advisory Committee (JPACT) approved the addition of a goal to
demonstrate climate leadership and reduce greenhouse gas emissions. In 2018, the goals,
objectives and related performance measures and targets were refined to address new
policies and near-term investment priorities for transportation equity, safety, Climate
Smart Strategy implementation and managing congestion. In 2023, the goals, objectives
and related performance measures and targets were further updated to focus on five
interconnected goals – equity, climate, safety, mobility, and the economy.

While the vision and goals are vital components of the plan, equally important are
measurable objectives and quantifiable performance targets to track the region’s
progress. Investments that achieve objectives and performance targets are critical for the
region to be successful in realizing a fully integrated, multimodal transportation system
that achieves the goals of the RTP.

Continuing the practice established with the RTP adopted in 2010, the 2023 RTP includes
transportation performance targets that support the outcomes-based framework
reflected in the plan’s goals and objectives. The goals, objectives and performance targets
provided policy direction for developing the investment strategy recommended in
Chapter 6. Chapter 7 reports findings on how well the RTP performs across a broad array
of measures and relative to the plan’s performance targets.

Performance targets are numerical benchmarks to assess the region’s progress in

carrying out the RTP vision. These targets draw from federal and state legislation and
regional policies and provide useful information on whether the region is making
progress toward the RTP goals and support the region’s performance-based planning and
decision-making framework shown in Figure 2.2.

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Figure 2.2 RTP performance-based planning and decision-making framework

Each goal area that follows is arranged similarly:

• A statement of the goal that describes a desired outcome or end state toward which
actions are focused to make progress toward the plan’s vision.
• Objectives that identify a measureable desired outcome and means for achieving the
goal to guide action within the plan period.
• Key performance measures that are used in three different ways to support the
region’s transportation planning and decision-making process:
o System performance measures – These are performance measures that are
used to predict the future as part of an evaluation process using forecasted
data. They can be applied at a system-level, corridor-level and/or project level,
and provide the planning process with a basis for evaluating alternatives and
making decisions on future transportation investments.
o Regional performance targets and thresholds – These are numerical goals or a
stated direction of performance to be achieved within a specified time period,
assigning a value to what the RTP is trying to achieve. Targets provided policy
direction for developing the investment strategy recommended in Chapter 6,
and address regional and state policies. Performance of the plan’s investment

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 relative to the targets is reported in Chapter 7 to track the region’s progress
toward the plan’s vision and goals.
o Monitoring and reporting measures and targets – These are measures used to
monitor changes based on actual empirical or observed data between updates
to the RTP. Decision-makers can use this information between updates to
evaluate the need for refinements to policies, investments or other elements of
the plan based on what is learned. Broad sets of multimodal monitoring
measures have been identified in support of implementing the region’s Climate
Smart Strategy (Appendix J) and Congestion Management Process (see
Appendix L). Some monitoring measures have targets for purposes of meeting
federal performance-based planning requirements. See Section 7.2 in Chapter 7
for more information about the region’s performance-based planning
framework.

The individual RTP goals, objectives and key system performance measures for each goal
area follows. Several measures relate to multiple goals.

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Goal 1: Mobility Options

People and businesses can reach the jobs,

goods, services and opportunities they
need by well-connected, low-carbon travel
options that are safe, affordable,
convenient, reliable, efficient, accessible,
and welcoming.

Objectives
• Objective 1.1 Travel Options – Plan communities and design and manage the
transportation system to increase the proportion of trips made by walking, bicycling,
shared rides and use of transit, and reduce per capita vehicle miles traveled.
• Objective 1.2 System Completion – Complete all gaps in planned regional networks.
• Objective 1.3 Access to Transit – Increase household and job access to current and
planned frequent transit service.
• Objective 1.4 Regional Mobility – Maintain reliable person-trip and freight mobility
for all modes in the region’s mobility corridors, consistent with the designated modal
functions of each facility and planned transit service within each corridor.
Key performance measures

Vehicle miles System Throughway Mode share Multimodal

traveled completeness reliability travel times

Performance of the plan for these measures is reported in Chapter 7.

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Goal 2: Safe System

Traffic deaths and serious crashes are

eliminated and all people are safe and
secure when traveling in the region.

Objectives
• Objective 2.1 Vision Zero – Eliminate fatal and severe injury crashes for all modes of
travel by 2035.
• Objective 2.2 Transportation Security – Reduce the vulnerability of travelers and
critical passenger and freight transportation infrastructure to crime and terrorism.

Key performance measure

Safety

Note: Metro has not developed the modeling tools to forecast crashes. Instead, the system
evaluation identifies how much the region needs to reduce serious crashes in order to
maintain progress toward it target of eliminating serious crashes by 2035, and compares
the results to current data in order to assess whether the region is on track to meet its
safety target.

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Goal 3: Equitable Transportation

Transportation system disparities

experienced by Black, Indigenous
and people of color and people
with low incomes, are eliminated.
The disproportionate barriers
people of color, people who speak
limited English, people with low
incomes, people with disabilities,
older adults, youth and other
marginalized communities face in
meeting their travel needs are
removed.

Objectives
• Objective 3.1 Transportation Equity – Eliminate disparities related to access, safety,
affordability and health outcomes experienced by people of color and other
marginalized communities.
• Objective 3.2 Barrier Free Transportation – Eliminate barriers that people of color,
low income people, youth, older adults, people with disabilities and other
marginalized communities face to meeting their travel needs.
Key performance measures*

Access to transit Access to jobs System Affordability**

completion

Performance of plan for these measures is reported in Chapter 7.

* Key performance measures compare RTP equity focus areas with areas outside RTP
equity focus areas.

** A performance measure for affordability is not included in the RTP system evaluation
but will be included in future updates to the plan as a method is developed. Observed data
is reported in Chapter 7.

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Goal 4: Thriving Economy

Centers, ports, industrial areas, employment

areas, and other regional destinations are
accessible through a variety of multimodal
connections that help people, communities,
and businesses thrive and prosper.

Objectives
• Objective 4.1 Connected Region – Focus growth and transportation investment in
designated 2040 growth areas to build an integrated system of throughways, arterial
streets, freight routes and intermodal facilities, transit services and bicycle and
pedestrian facilities, with efficient connections between modes and communities that
provide access to jobs, markets and community places within and beyond the region.
• Objective 4.2 Access to Industry and Freight Intermodal Facilities – Maintain
access to industry and freight intermodal facilities by a reliable and seamless freight
transportation system that includes air cargo, pipeline, trucking, rail, and marine
services to facilitate efficient and competitive shipping choices for goods movement in,
to and from the region.
• Objective 4.3 Access to Jobs and Talent – Attract new businesses and family-wage
jobs and retain those that are already located in the region while increasing the
number and variety of jobs that households can reach within a reasonable travel time.
• Objective 4.4 Transportation and Housing Affordability – Reduce the share of
income that households in the region spend on transportation to lower overall
household spending on transportation and housing.
Key performance measures

Access to jobs Access to Multimodal Affordability*

industry and Travel
freight facilities

Performance of the plan for these measures is reported in Chapter 7.

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Goal 5: Climate Action and Resilience

People, communities and ecosystems are

protected, healthier and more resilient
and carbon emissions and other pollution
are substantially reduced as more people
travel by transit, walking and bicycling
and people travel shorter distances to get
where they need to go.

Objectives
• Objective 5.1 Climate Change Mitigation – Meet adopted targets for reducing
transportation-related greenhouse gas emissions and vehicle miles traveled per capita
in order to slow climate change.
• Objective 5.2 Climate-Friendly Communities – Increase the share of jobs and
households in walkable, mixed-use areas served by current and planned frequent
transit service.
• Objective 5.3 Resource Conservation – Preserve and protect the region’s biological,
water, historic, and culturally important plants, habitats and landscapes.
• Objective 5.4 Green Infrastructure – Integrate green infrastructure strategies to
maintain habitat connectivity, reduce stormwater run-off, and reduce light pollution.
• Objective 5.5 Adaptation and Resilience – Increase the resilience of communities
and regional transportation infrastructure to the effects of climate change and natural
hazards, helping to minimize risks for communities.
Key performance measures

Greenhouse Vehicle miles Potential

gas emissions traveled resources
impact

Performance of plan for these measures is reported in Chapter 7.

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2.4 REGIONAL TRANSPORTATION PERFORMANCE TARGETS
Table 2.1 summarizes the performance measures and targets that are included in the
Regional Transportation Plan (RTP), organized by the five RTP goal areas. These targets
come from a variety of sources, but all are founded in the policies described in Chapter 3.
Some of the targets listed below come from state and federal agencies that oversee the
RTP process, some have been formally adopted through the RTP process, and others are
implicit in RTP policies that call for improving certain conditions or prioritizing specific
investments. Some of the targets listed below are easier to achieve than others. But even
the more aspirational targets help to clarify the region's goals and provide benchmarks
against which to gauge the region's progress.

Table 2.1: RTP performance measures, targets, and thresholds at a glance

Measure name Description
Mobility
Mode share The RTP aims to triple transit, bike, and pedestrian mode shares
relative to the base year.
Access to jobs The RTP prioritizes improving access to jobs via driving and transit
relative to the base year.
Multimodal access The RTP aims to provide the same level of access to jobs via transit (or
greater) as via driving so that transit offers the same efficiency and
convenience as driving.
System completion The RTP aims to complete the motor vehicle, transit, bicycle, trail and
pedestrian networks by 2035.
System completion The RTP prioritizes completing the bicycle and pedestrian system near
near transit transit (relative to the regional average) in order to provide safe and
convenient access to stations and stops.
Access to options The RTP aims to increase the share of households that are located near
transit and bicycle or pedestrian facilities relative to the base year.
Throughway The RTP aims to have no more than four hours in a day when average
reliability travel speeds fall below 35 miles per hour on the region’s limited-
access throughways and 20 miles per hour on other designated
throughways so that the region’s throughways are reliable.
Safety
Serious crashes The RTP aims to eliminate transportation related fatalities and serious
injuries for all users of the region’s transportation system by 2035,
with a sixteen percent reduction by 2020 (compared to 2015), and a
fifty percent reduction by 2025.
Equity
Serious crashes The RTP aims to eliminate transportation related fatalities and serious
and equity injuries for all users of the region’s transportation system in equity
focus areas, with a sixteen percent reduction by 2020 (compared to
2015), and a fifty percent reduction by 2025.
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 Measure name Description
Safe system The RTP prioritizes completing the bicycle and pedestrian system in
completion and equity focus areas (relative to other communities) to provide safe
equity streets for the most vulnerable travelers.
Access to jobs and The RTP prioritizes improving access to jobs within equity focus areas
equity (relative to other communities).
Economy
Travel times The RTP aims to maintain driving and transit travel times along
regional mobility corridors relative to the base year.
System completion The RTP prioritizes completing the bicycle and pedestrian system in job
– job centers and activity centers (relative to the regional average) in order to
provide safe and convenient options for short trips and connections to
transit.
Climate and
environment
Climate The RTP aims to reduce per capita greenhouse gas emissions from
light-duty vehicles and per capita vehicle miles traveled in order to
meet climate targets set by the State which are to reduce vehicle miles
traveled per person by 35% by 2050, with a 30 percent reduction by
2045 and a 25% reduction by 2040, compared to 2005.
Climate The RTP aims to help meet revised statewide goals identified in the
Governor’s Executive Order 20-04 that require accelerated reductions
in greenhouse gas emissions to levels at least 45 percent below 1990
emissions levels by 2035 and at least 80 percent below 1990 levels by
the year 2050.
Air quality The RTP aims to keep air pollution from mobile sources levels below
thresholds set by the federal government.

All regional performance targets are for the year 2045, unless otherwise specified. The
performance targets are the highest order evaluation measures in the performance-based
policy framework – providing key criteria by which progress towards the plan goals can
be assessed. The aspirational performance targets set quantifiable goals for the achieving
the plan’s desired policy outcomes within a certain timeframe, though not all goals have
targets and several targets address multiple goals.

In comparison, system performance measures are used to evaluate changes between

current conditions (in 2020) and future conditions (in 2045) with implementation of the
transportation investments identified in the plan. Performance of the plan is reported in
Chapter 7.

Complementary performance measures identified in Appendix J and Appendix L have

monitoring targets that will help monitor progress towards meeting the RTP goals and
objectives in the shorter-term, between and during scheduled updates to the RTP.

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In accordance with federal regulations 23 CFR 450.320 and 23 CFR 450.324, Appendix F
includes an environmental assessment that identifies natural, historic and culturally
important resources that intersect with and may be affected by projects in the plan and
mitigation activities to address the potential environmental impacts of future
transportation projects.

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Chapter 3
System Policies to Achieve Our Vision
2023 Regional Transportation Plan
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TABLE OF CONTENTS
Introduction ...................................................................................................................................3-1
Chapter organization ............................................................................................................................. 3-1
3.1 Regional Transportation System Components ............................................................................3-2
3.2 Overarching System Policies ......................................................................................................3-4
3.2.1 2040 Growth Concept – an integrated land use and transportation vision and
strategy3-4
3.2.2 Transportation Equity Policies .................................................................................................. 3-8
3.2.3 Safety and Security Policies .................................................................................................... 3-23
3.2.4 Climate Action Policies and Resilience Policies ...................................................................... 3-32
3.2.5 Pricing Policies ........................................................................................................................ 3-40
3.2.6 Mobility Policies ...................................................................................................................... 3-54
3.3 Regional Network Visions, Concepts and Policies ................................................................ 3-69
3.3.1 Regional mobility corridor concept ........................................................................................ 3-71
3.3.2 Regional Design and Placemaking Vision and Policies ........................................................... 3-73
3.3.3 Regional motor vehicle network vision and policies .............................................................. 3-88
3.3.4 Congestion management process .......................................................................................... 3-98
3.3.5 Regional transit network vision and policies ........................................................................ 3-100
3.3.6 Regional freight network vison and policies......................................................................... 3-124
3.3.7 Regional active transportation network vision..................................................................... 3-132
3.3.8 Regional bicycle network concept and policies .................................................................... 3-135
3.3.9 Regional pedestrian network concept and policies.............................................................. 3-144
3.3.10 Transportation System Management and Operations Vision and Policies .......................... 3-151
3.3.11 Transportation Demand Management Concept and Policies .............................................. 3-157
3.3.12 Emerging Technology Policies .............................................................................................. 3-162

FIGURES
Figure 3-1 Growth Concept – an integrated land use and transportation vision ...................................... 3-4
Figure 3-2 Regional equity focus areas map ............................................................................................ 3-11
Figure 3-3 Regional transportation safety strategies .............................................................................. 3-24
Figure 3-4 Components of the Safe System approach ............................................................................ 3-25
Figure 3-5 Guiding principles of the Safe System approach .................................................................... 3-26
Figure 3-6 Regional high injury corridors and intersections .................................................................... 3-27
Figure 3-7 Regional emergency transportation routes (ETR) map .......................................................... 3-39
Figure 3-8 System Planning Process Utilizing the Mobility Policy Measures........................................... 3-64
Figure 3-9 Guidance for Assessing Plan Amendment Impacts ................................................................ 3-67
Figure 3-10 Plan Amendment Process Utilizing the Mobility Policy Measures ....................................... 3-68
Figure 3-11 Regional transportation system components ...................................................................... 3-70
Figure 3-12 Regional mobility corridor concept ...................................................................................... 3-72
Figure 3-13 Mobility corridors in the Portland metropolitan region ....................................................... 3-72
Figure 3-14 Metro’s Designing Livable Streets and Trails Guide ............................................................. 3-73
Figure 3-15 Land use and transportation transect .................................................................................. 3-75
Figure 3-16 Street connectivity ................................................................................................................ 3-76
Figure 3-17 Livable streets and trails functions ....................................................................................... 3-77
Figure 3-18 Examples of how green infrastructure can help achieve regional goals .............................. 3-85
Figure 3-19 The performance-based design decision-making framework .............................................. 3-87
Figure 3-20 Regional design classifications map [To be added] .............................................................. 3-87
Figure 3-21 Regional motor vehicle network concept ............................................................................. 3-88
Figure 3-22 Collector and local street network concept ......................................................................... 3-96
Figure 3-23 Regional motor vehicle network map .................................................................................. 3-97
Figure 3-24 Regional transit network concept....................................................................................... 3-102
Figure 3-25 Regional transit spectrum................................................................................................... 3-105
Figure 3-26 Regional transit network map ............................................................................................ 3-106
Figure 3-27 Service improvements, capital investments and transit supportive elements .................. 3-107
Figure 3-28 Tools for building a high-quality transit system ................................................................. 3-109
Figure 3-30 U.S. High speed intercity passenger rail network ............................................................... 3-118
Figure 3-30 Regional transit access priorities ........................................................................................ 3-119
Figure 3-31 Regional freight network concept ...................................................................................... 3-124
Figure 3-32 Regional freight network map ............................................................................................ 3-131
Figure 3-33 Regional bicycle network concept ...................................................................................... 3-136
Figure 3-34 Bicycle parkway concept..................................................................................................... 3-139
Figure 3-35 Regional bicycle network map ............................................................................................ 3-143
Figure 3-36 Regional pedestrian network concept ................................................................................ 3-145
Figure 3-37 Regional pedestrian network map ..................................................................................... 3-150
Figure 3-38 Transportation system management and operations map ................................................ 3-156

TABLES
Table 3-1 Growth concept and land use design......................................................................................... 3-6
Table 3-2 Priority infrastructure investment strategies ............................................................................ 3-7
Table 3-3 Pricing and implementing agency ............................................................................................ 3-41
Table 3-4 Potential Options for Revenue Reinvestment ......................................................................... 3-45
Table 3-5 Mobility performance targets and thresholds ........................................................................ 3-58
Table 3-6 Planned regional transportation system and typical design components of regional design
classifications ........................................................................................................................................... 3-78
Table 3-7 Design characteristics of healthy urban arterials .................................................................... 3-81
Table 3-8 Planned motor-vehicle network capacity ................................................................................ 3-89
Table 3-9 Toolbox of strategies to address congestion in the region...................................................... 3-99
Table 3-10 Effects of land use on transit service ................................................................................... 3-103
Table 3-11 Better Bus treatments to enhance frequent transit service ................................................ 3-115
Table 3-12 Examples of TSMO and investments in four strategic areas ............................................... 3-152
Table 3-13 RTP goals and corresponding emerging technology principles ........................................... 3-163
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INTRODUCTION
Purpose
Transportation shapes our communities and our daily lives, giving access to opportunities
and to meet daily needs. Chapter 3 includes overarching, network, and system
management policies for the regional transportation system.
The policies in this chapter support implementation of the vision, goals and objectives for
the regional transportation system defined in Chapter 2.
Policies guide the development and implementation of the regional transportation
system, informing transportation planning and investment decisions made by the Joint
Policy Advisory Committee on Transportation (JPACT) and the Metro Council as well as
state and local partners.
Chapter organization
This chapter is organized into three sections.
Regional partners have developed policies in this chapter over many decades. As a result,
policy sections do not always follow the same format or include all the same elements.
Some policies include actions for regional, state, and local agencies and other
stakeholders. These policies, such as transportation equity, pricing, and mobility, were
developed through the Regional Transportation Plan (RTP) update and do not exist in a
separate plan. Implementing actions for policies that are derived from a separate plan,
such as the safety and freight policies, are not included in this chapter. Instead, the
separate plan is referenced in the text.
3.1 Regional transportation system components: This section defines the
transportation facilities and areas that comprise the regional transportation system.
3.2 Overarching system policies: This section provides overarching policies for the
regional transportation system. Overarching system policies correlate to regional goals
and include policies for implementing the 2040 Growth Concept, advancing
transportation equity, improving safety, climate leadership and resilience, using pricing,
and supporting multimodal mobility.
3.3 Regional network visions, concepts, and policies: This section provides the vision,
network concepts, and policies and policy maps for regional street design and
placemaking, the regional – motor vehicle, transit, freight, pedestrian and bicycling
networks, and for transportation system management and operations, transportation
demand management, and emerging technology.

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3.1 REGIONAL TRANSPORTATION SYSTEM COMPONENTS
The policies in this chapter apply to the regional transportation system of the greater
Portland region. A facility or service is part of the regional transportation system if it
provides access to any activities crucial to the social or economic health of the greater
Portland region, including connecting the region to other parts of the state and Pacific
Northwest, or provides access to and within 2040 Growth Concept centers, main streets,
corridors, and industrial and employment areas, as described in Section 3.2.1.

Regional transportation system components

The following facilities and areas are the components that make up the regional
transportation system.
1. Planned and existing throughways, highways and arterials shown on the regional
motor vehicle network map shown in Figure 3-23, including: all state-owned
transportation facilities: interstate, statewide, regional and district highways and their
bridges, overcrossings, and ramps, and all city- or county-owned arterial roadways
and their bridges.
2. All streets and transportation facilities, including bicycle and pedestrian facilities,
within 2040 centers, corridors, industrial areas, employment areas, main streets and
station communities shown on the 2040 Growth Concept map in Figure 3-1.
3. All high capacity transit and regional transit network facilities and their bridges
shown on the regional transit network map in Figure 3-24.
4. All regional bicycle and pedestrian facilities and their bridges, including regional trails
shown on the regional pedestrian and bicycle network maps in Figure 3-35 and
Figure 3-37.
5. All bridges that cross the Willamette, Columbia, Clackamas, Tualatin, or Sandy rivers.
6. All freight and passenger intermodal facilities, airports, rail facilities and marine
transportation facilities and their bridges shown on the regional freight network map
in Figure 3-32.
7. Any other transportation facility, service or strategy that is determined by JPACT and
the Metro Council to be of regional interest because it has a regional need or impact
(e.g., transit-oriented development, transportation system management and demand
management strategies, local street connectivity and culverts that serve as barriers to
fish passage).

The Regional Transportation Plan (RTP) designates these facilities on the network maps
in this chapter. Together, these facilities and services constitute an integrated and
interconnected system that supports planned land uses and provide travel options to
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achieve the goals, objectives, and policies of the RTP. Typically, projects must be
identified on or as part of the regional transportation system to be eligible for federal
transportation funding.

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3.2 OVERARCHING SYSTEM POLICIES
This section defines regional transportation system policies related to land use,
transportation equity, safety, climate action, resiliency, mobility, and pricing. These
policies apply to the regional transportation system and the regional networks in Section
3.3.

3.2.1 2040 Growth Concept – an integrated land use and transportation vision and
strategy

In 1995, the greater Portland region adopted the 2040 Growth Concept, the long-range
strategy for managing growth that integrates land use and transportation system
planning to preserve the region’s economic health and livability in an equitable,
environmentally sound, and fiscally responsible manner.
Figure 3-1 Growth Concept – an integrated land use and transportation vision

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Shown in Table 3-1, the 2040 Growth Concept includes land use and transportation
building blocks that express the region’s aspiration to incorporate population growth
within existing urban areas as much as possible and expand the urban growth boundary
only if necessary. It concentrates mixed-use and higher density development in urban
centers, station communities, corridors and main streets that are well served by transit,
walking and bicycling. It envisions a well-connected street network that supports biking
and walking for short trips. Employment lands serve as hubs for regional commerce and
include industrial land and freight facilities for truck, marine, air, and rail cargo sites that
enable goods to be generated and moved in and out of the greater Portland region. Freight
access to industrial and employment lands is centered on rail, the freeway system and
other road connections.

Implicit in the 2040 Growth Concept is the understanding that compact development is
more affordable, sustainable, livable, and fiscally responsible than urban sprawl, and will
help reduce the region’s carbon footprint. Increased pedestrian and bicycle access and
new transit and road capacity are needed to achieve the 2040 Growth Concept vision and
support the region’s economic vitality.

Transportation and the economy are closely linked and investments that serve certain
land uses, or transportation facilities may have a greater economic return than others.
This means ensuring reliable and efficient connections between intermodal facilities and
destinations within and outside the region to promote the region's function as a gateway
for trade and tourism.

[Link] 2040 Growth Concept Land-use Design Types

The 2040 Growth Concept land uses, called 2040 Design Types, are arranged in a
hierarchy. Regional Transportation Plan (RTP) investments are typically focused in the
primary and secondary land uses, referred to as 2040 Target Areas. These are the areas
expected to absorb a large share of the region’s future growth. The hierarchy also serves
as a framework for prioritizing RTP investments. Table 3-1 lists the 2040 design types
based on this hierarchy.

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Table 3-1 Growth concept and land use design

2040 Target Areas

Primary land uses Secondary land uses Other urban land uses
• Portland central city • Employment areas • Neighborhoods
• Regional centers • Town centers
• Industrial areas • Station communities Other land uses outside UGB
• Freight and passenger • Corridors • Urban reserves
intermodal facilities • Main streets • Rural reserves
• Neighbor cities

Different parts of the region are at different stages of implementing the 2040 Growth
Concept. As a result, different areas may have different transportation investment needs
and priorities that will require substantial public and private investment over the long-
term. Table 3-2 provides an example of the type of investments that might be applicable
depending on how far along an area is in implementing the 2040 Growth Concept.

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Table 3-2 Priority infrastructure investment strategies
Developed Areas Developing Areas Undeveloped Areas
Built-out areas, with most new Redeveloping and developing More recent additions to the
Development
housing and jobs areas, with most new housing urban growth boundary, with
accommodated through infill, and jobs being accommodated most new housing and jobs
Stage of

redevelopment, and through infill, redevelopment, accommodated through

brownfields development. and greenfield development. greenfield development.

Operations, maintenance, and Operations, maintenance, and Operations, maintenance, and

preservation of existing preservation of existing preservation of existing
transportation assets. transportation assets. transportation assets.

Managing the existing Preserving right-of-way for Preserving right-of-way for

transportation system to future transportation system. future transportation system.
optimize performance for all
modes of travel.

Leveraging infill, Managing the existing Providing a multimodal urban

Infrastructure Investment Strategies

redevelopment and use of transportation system to transportation system.

brownfields. optimize performance for all
modes of travel.

Addressing bottlenecks and Leveraging infill, Managing new transportation

improving system connectivity redevelopment and use of system investments to
to address barriers and safety brownfields optimize performance for all
deficiencies. modes of travel.

Providing a multimodal urban Providing a multimodal urban Focusing on bottlenecks and

transportation system. transportation system. improving system connectivity
to address barriers and safety
deficiencies.

Completing local street Focusing on bottlenecks and Completing local street

connections needed to improving system connectivity connections needed to
complement the arterial street to address barriers and safety complement the arterial street
network. deficiencies. network.

Completing local street

connections needed to
complement the arterial
network.

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3.2.2 Transportation Equity Policies

The Regional Transportation Plan (RTP) reflects a regional commitment to plan and
invest in the region’s transportation system to reduce transportation-related disparities
and barriers faced by communities of color and other marginalized communities,
regardless of race, language proficiency, income, age, or ability.

The greater Portland region’s economic prosperity and quality of life depend on an
equitable transportation system that provides every person and business in the region
with access to safe, efficient, reliable, affordable, and healthy travel options and have the
fair opportunity to thrive, regardless of their race or ethnicity. Investment in the region’s
transportation system is one important tool in reducing disparities and barriers
experienced by communities of color. But the tool must be intentional and deployed with
focus to be successful in reducing racial disparities rather than worsening disparities.

The policies in this section provide direction to Metro, working in partnership with
marginalized communities, jurisdictions, and other partners, to prioritize racial and
transportation equity in regional transportation planning and decision-making.
Why is a focus on racial equity important?

A goal of racial equity is to reach a time when race is no longer a predictor of life
outcomes, and outcomes for all groups are improved. In the transportation context, this
means addressing and removing disparities for marginalized communities, especially for
people of color, English language learners, and people with low incomes, in areas
identified by these communities as priorities for the regional transportation system,
including, but not limited to, accessibility, mobility, safety, affordability and
environmental health.

Transportation mobility and accessibility plays a significant intersectional role in

reducing disparities, but historically, its development and operation has contributed to
unequal benefits. Using transportation infrastructure projects as an urban renewal
mechanism led to the destruction of thriving communities, particularly Black
communities in Portland.

Lessons learned from the generational impacts of displacement on marginalized

communities teaches us that to achieve equitable transportation, government must
embed equity considerations in each step of the transportation planning and
implementation. Marginalized communities bear an unequal burden of environmental
harms, such as urban heat islands, air pollution and traffic crashes. For the greater
Portland region to be environmentally sustainable and economically prosperous,

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government and communities must proactively address racial disparities and tackle the
most pervasive challenges.

Focusing on racial disparities and barriers helps develop and maintain sustainable
economic growth by fostering greater racial inclusion and reducing racial income gaps. 1
This, in turn allows communities facing the greatest barriers opportunities to flourish and
build generational wealth. Policies, projects, and strategies that address these disparities
can help other marginalized groups, including low-income households, elders, youth, and
people with disabilities.

[Link] Metro’s Strategic Plan to Advance Racial Equity, Diversity, and Inclusion (2016)

In 2010, the Metro Council adopted equity as one of the region’s six desired outcomes.
Adopted by the Metro Council in June 2016, Metro’s Strategic Plan to Advance Racial
Equity, Diversity, and Inclusion is a major milestone in the agency’s efforts to define,
implement and measure equity in the greater Portland region. 2 The Plan’s purpose is to
provide a strategic approach to incorporating equity into policy, decision-making, and
programs. The Strategic Plan provides clarity and direction to Metro’s different lines of
business related to integrating and approaching equity in planning, operations, and
services.

The key aspect of the Strategic Plan is its focus and emphasis on deliberately tackling
inequities based on race and ethnicity. The Strategic Plan is organized around five long-
term goals that inform the RTP.

The goals are:

A. Metro convenes and supports regional partners to advance racial equity;
B. Metro meaningfully engages communities of color;
C. Metro hires, trains, and promotes a racially diverse workforce;
D. Metro creates safe and welcoming services, programs and destinations; and
E. Metro’s resource allocation advances racial equity.

1 Treuhaft, S., Blackwell, A.G., & Pastor, M. (2012). America’s Tomorrow: Equity is the Superior Growth Model.
Retrieved January 2016: [Link]/sites/default/files/SUMMIT_FRAMING_WEB_20120110.PDF
2
Metro Strategic plan to advance racial equity, diversity and inclusion, Executive summary, June 2016,
[Link]
[Link]

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[Link] Regional Transportation Plan equity focus areas

Metro and regional partners identified Equity Focus Areas using 2020 Census and 2016-
20 American Community Survey data for the following groups:
• People of Color - People who do not identify as white.
• English Language Learners - People who identify as unable “to speak English very
well.”
• People with Lower Incomes – People with incomes equal to or less than 200% of the
Federal Poverty Level.

These three groups, as identified in Census data, are the emphasis and focus for the RTP,
but not with exclusivity to the needs of other marginalized communities, including young
people, older adults and people living with disabilities.

Figure 3-2 shows Equity Focus Areas, which are areas with double the regional average
density of any one of the three groups listed above. The RTP directs certain investments
toward these areas where they can benefit as many people as possible. More detail on
how Metro created this map and on the state of transportation equity in the region can be
found in RTP Chapter 4.

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Figure 3-2 Regional equity focus areas map

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[Link] Transportation equity policies

The Transportation Equity policies in this section aim to eliminate transportation-related

disparities and barriers 3 identified by marginalized communities as priorities to address
through the RTP and regional transportation planning and decision-making processes.

Policy 1 Embed equity into the planning and implementation of transportation projects,
programs, policies, and strategies to achieve equitable outcomes for marginalized
communities, particularly communities of color and people with low incomes.

Policy 2 Ensure investments in the transportation system support community stability by

anticipating and minimizing the effects of displacement and other affordability
impacts on marginalized communities, with a focus on communities of color and
people with low income.

Policy 3 Prioritize transportation investments that eliminate transportation-related

disparities and barriers for marginalized communities, with a focus on communities
of color and people with low income.

Policy 4 Meaningfully engage federally recognized tribes, communities of color and other
marginalized communities to participate in the development and implementation of
transportation plans, projects and programs.

Policy 5 Collect and assess qualitative and quantitative data to understand the
transportation-related disparities, barriers, needs and priorities of communities of
color and other marginalized communities.

Policy 6 Evaluate transportation plans, policies, programs, and investments to understand

how they address transportation-related disparities and barriers experienced by
communities of color, people with low income and other marginalized communities
and the extent disparities are being eliminated.

Policy 7 Create living-wage career pathways for people of color and women into the
construction industry and support the growth and participation of women and
people of color owned firms on capital projects throughout the transportation
system.

The policies provide direction as to how Metro, working in partnership with marginalized
communities, jurisdictions, and other partners, will prioritize transportation equity in
regional transportation planning and decision-making. These policies are consistent with

3
Transportation-related disparities and barriers identified by historically marginalized communities as priorities to
address include safety, access, affordability and community health.

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Chapter 660 Division 12 of Oregon Administrative Rules (OAR). 4 These rules include
additional guidance for equitable transportation planning and decision-making.

Because the Transportation Equity policies do not have a separate topical plan, specific
implementing actions are included for each transportation equity policy.

Transportation Equity Policy 1. Embed equity into the planning and implementation of
transportation projects, programs, policies, and strategies to achieve equitable outcomes
for marginalized communities, particularly communities of color and people with low
incomes.

Equity considerations embedded in transportation projects, programs, policies, and

strategies must reflect the transportation priorities identified by marginalized
communities, including accessibility, safety, community health, and affordability.
Embedding equity into planning and implementation requires a paradigm shift as to how
transportation is currently planned, built and operated. This includes bringing in unheard
voices from project or policy inception all the way through construction to understand the
perspective of potential benefits or impacts.

Additionally, transportation agencies must consider how investments can advance equity.
A transportation investment can provide greater access to opportunities for marginalized
communities, such as access to education or jobs, but a transportation investment also
offers contracting and hiring opportunities. By embedding equity into transportation
comprehensively, a full view and consideration of the benefits and impacts of
transportation can be understood and weighed.

Agencies can take a variety of actions to embed equity into transportation processes.
Many transportation agencies have organizational level equity policies that can support
the implementation and incorporation of these actions. For example, existing policies and
structures can support participation mechanisms, such as creation of committees in ways
that address power imbalances among groups and stipends for community participation
in decision making processes.
To implement Transportation Equity Policy 1, regional partners should take the following actions:
1. Examine the structure of decision-making processes, identify who participates (or
doesn’t) in decision making and how their input is linked to the outcomes of the
decisions.

4
See OAR 660-012-0130 (Decision-Making with Underserved Populations), OAR 660-012-0125(Underserved
Populations) and OAR 660-012-0135 (Equity
Analysis).[Link]

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 a. Change the design of decision-making processes to increase access and
opportunity to those who have been previously excluded. This includes
prioritizing representation from Black, Indigenous and People of Color
communities and equity leaders.
b. Provide opportunities for direct interaction with decision makers and shift
power inequities.
2. Use specific methods, analysis and tools in transportation planning, and decision-
making processes to eliminate exclusionary practices. This includes using tools,
analysis, and methods to check implicit bias and assess power dynamics, providing
distinct participation mechanisms for those most impacted, considering who
benefits and who is most impacted by decisions, and ultimately shifting the way
decisions are made.
a. Data collection and analysis: Assessment of current community
conditions that may be impacted by the proposed decision with attention to
demographics, historical, real estate market, workforce, and environmental
conditions.
b. Social and economic power analysis: A social power analysis is a tool that
can be used to determine who has the decision-making power or influence,
historically and today, to inform this decision, as well as who has the power
to change this decision. This analysis is supported by data collection that
considers who is positively and negatively affected by the proposed
decision.
c. Appointed representation: Appointed representation is a participation
mechanism for appointing individuals from specific social groups who have
the least influence and are most impacted by the proposed decision.
d. Decision mapping: This tool supports the design of a process to include
individuals and groups that lack access and opportunity to participate in
decision making. Conceptual mapping of a process is used to determine
how and when individuals or a group may be included in decisions and how
their input is linked to outcomes. A key aspect of this is identifying decision
points to inform how to situate participants to influence decisions rather
than serve as a review body.
e. Reflective questions: Incorporating specific questions into decision
making processes help address implicit bias and shift the way we make
decisions. These may include questions such as: Who benefits and who is
burdened by this decision? In addition, more extensive and in-depth
questions may be tailored to the specific policies and programs.

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Transportation Equity Policy 2. Ensure investments in the transportation system support
community stability by anticipating and minimizing the effects of displacement and other
affordability impacts on marginalized communities, with a focus on communities of color
and people with low income.

A trend observed across many western U.S. cities is that with a severe deficit of housing
supply, particularly affordable units, the addition of certain transportation projects, such
as a new rail line or a high-quality bicycle/pedestrian trail, can increase surrounding
property values, contribute to displacement, and disrupt community stability. This has
occurred in Portland, in particular for the experience of Black communities in North and
Northeast Portland. Over time, ethnic and new immigrant neighborhoods with good
access to transportation have gentrified, displacing established communities. Dense
centers are appealing and desirable and do not have enough affordable housing and are
becoming more expensive as transportation investments are made. This creates a vicious
cycle of increased transportation access to those who have the financial means to afford
travel options and the benefits not born to the existing community.

The success, sustainability and prosperity of the region relies on how well government
agencies and partners addresses displacement before infrastructure investments are
made. Displacement is a pervasive challenge that requires ongoing collaboration between
land use, housing, and transportation agencies.
To implement Transportation Equity Policy 2, regional partners should take the following actions:
1. Plan capital transportation investments to include a variety of strategies to avoid
and minimize involuntary displacement, such as increasing rent burden.
2. Demonstrate how intersectional issues of housing affordability and displacement
are being addressed proactively in plans and programs prior to capital investment
in transportation infrastructure.
a. Look at land use solutions and survey what is necessary in land use policy
to avoid and mitigate involuntary displacement.
b. Collect data and build analysis tools that can assess and monitor
transportation and housing affordability issues and share the information
to partners to help inform capital investment decisions.
3. Increase the number of units of regulated affordable housing in proximity to
frequent transit service and in 2040 growth centers as well as communities with
rich access to travel options, jobs, and community places.

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Transportation Equity Policy 3. Prioritize transportation investments that eliminate
transportation-related disparities and barriers for marginalized communities, with a focus
on communities of color and people with low income.

Eliminating transportation disparities is vital to achieving transportation equity.

Marginalized communities have identified affordability, safety, access, and environmental
health as transportation priorities. Focusing on eliminating disparities requires a shift in
the current practices of transportation agencies, and developing transportation plans,
programs, policies, and investments to achieve of fairness rather than equality.

While Federal law requires that benefits and burdens of transportation are distributed
equally, transportation agencies should focus on eliminating disparities caused by
systemic racism; not only will marginalized communities’ benefit, but all communities will
benefit.

To focus on the disparities, it is imperative for transportation agencies to ask

marginalized communities to provide direction and prioritization of which disparities to
tackle first and the best methods to do so.

This should also be done with continued engagement through implementation and future
prioritization processes to reflect new priorities or other unforeseen issues. Also see
Transportation Equity Policies 4 through 6.
To implement Transportation Equity Policy 3 regional partners should take the following actions:
1. Seek opportunities to restore Black, Indigenous and people of color (BIPOC),
federally recognized tribes, and other marginalized communities harmed by past
transportation decisions through collaborative re-investment and removal of
harmful infrastructure.
2. Commit to and focus on systematically addressing disparities for marginalized
communities, and measure and track progress.
3. Actively question and engage federally recognized tribes and impacted
communities to understand how the plan, program, policies, strategies, or action
being undertaken contributes to reducing and eliminating disparities.
4. Actively recognize and put aside implicit partialities and biases.
5. More specifically for the outcomes of safety, access, affordability, and public health,
prioritize the following:
a. Among the multiple priorities for the region’s transportation system,
prioritize and advance the equity elements of the priority. For example, in
looking at a transportation investment focused on safety, advance the

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 element that would benefit communities of color over a general safety
benefit.
b. Prioritize building out the active transportation infrastructure network in
areas where there are gaps and deficiencies. Focus on completing gaps in
communities of color as a means of prioritizing equity. This includes
advancing the completion of access to transit in marginalized communities.
c. Implement the Regional Travel Options Strategy, including the new Safe
Routes to School program, with emphasis to support new partnerships with
organizations that serve marginalized communities.
d. Prioritize the safety of the transportation system, especially in marginalized
communities, but focus on addressing the systemic safety issues on high
injury corridors which marginalized communities’ traverse. Focus on
increasing safety in high-risk locations and on high injury corridors that
coincide with higher residential concentrations of marginalized
communities.
e. Prioritize and focus on increasing active transportation and transit access
to jobs and community places (e.g., libraries, pharmacies, grocery stores,
schools, etc.) and services for marginalized communities. Place an emphasis
on connecting marginalized communities to middle-wage employment
opportunities.
6. Focus on transit solutions that serve marginalized communities.
a. This may include creative solutions such as community and job connector
shuttle services.
b. Focus increase in service on transit routes that serve a significant portion of
marginalized communities.
c. While not the most productive and efficient from a strict transit
management view, consider coverage transit service routes to support
marginalized communities as they navigate the shifting housing
affordability dynamics.
d. Support special needs transportation providers.
7. Complement affordable housing and transit-oriented development to support the
integration of land use and transportation where marginalized communities will
benefit.
a. Ensure the long-term sustainability of programs that make transportation
affordable, including the adult low-income fare and student pass programs
on transit.

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 b. Complement and cross-implement the strategies in the Coordinated
Transportation Plan for Seniors and People with Disabilities in Appendix G.
8. Document and address existing disparities in exposure to transportation related
air pollutants, including PM2.5, Diesel PM, NO2 and air toxics, and evaluate
whether projects reduce or exacerbate disparities.

Transportation Equity Policy 4. Meaningfully engage federally recognized tribes,

communities of color and other marginalized communities to participate in the
development and implementation of transportation plans, projects and programs.

Meaningful engagement is critical to understand the perspectives and experiences of

marginalized communities and to build plans, projects, and programs to address these
perspectives and experiences.

Meaningful and inclusive engagement takes a significant effort and relies on building
relationships and trust with members of marginalized communities and is a significant
change from the conventional practices of public involvement in the transportation
sector. Engagement and inclusion help embedding equity in the transportation planning
process by allowing for marginalized communities to be seen, heard, and considered, and
allow for their needs and priorities to influence the planning and decision-making
process.
To implement Transportation Equity Policy 4 regional partners should take the following actions:
1. Reduce the barriers to participation in public processes for these communities.
a. Transportation professionals should look to reduce the barriers for
marginalized communities to participate (e.g., go out into the community,
offer language translation and childcare services, provide food and
incentives) and reach out to marginalized communities in meaningful ways
(e.g., engaging through a community liaison, allowing communities to lead
the discussion) and at opportunities to shape and influence transportation
plans, policies and program (e.g., not at a perfunctory time).
2. Identify funding and contracting opportunities for community outreach liaisons
and community based organizations who are trusted members of marginalized
communities to facilitate relationship-building, conversations, and meaningful
engagement.
3. Dedicate resources to meaningfully engage marginalized communities in planning
and decision-making processes.
4. Bring in voices from marginalized communities to add perspective and help guide
how equity can be embedded in the planning and decision-making process.

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 5. Use the Climate Friendly Equitable Communities (CFEC) Program for
guidance/rules on inclusive decision making.

Transportation Equity Policy 5. Collect and assess qualitative and quantitative data to
understand the transportation-related disparities, barriers, needs and priorities of
communities of color and other marginalized communities.

Conventional data sources and analysis practices do not always capture disparities
experienced by marginalized communities. While national datasets or statewide statistics
provide a picture of disparities, gaps in local data and information makes it difficult to
assess the performance of transportation plans, programs, and policies on the outcomes
and priorities identified marginalized communities.

Collecting disaggregated data at a local scale gives the ability to look in-depth at local
conditions on key transportation outcomes identified as priorities by marginalized
communities – affordability, safety, access, and environmental health – and is necessary to
understand the current level of disparities and establish appropriate baselines. Until such
data can be collected, it is imperative to supplement data collection and assessment with
engagement to gather the qualitative information directly from marginalized
communities.

Additionally, in supplementing quantitative data with engagement and qualitative data,

needs, gaps, and deficiencies which may have already been identified can be confirmed.
By supporting data collection and assessment focused on the needs and priorities of
marginalized communities, especially communities of color, transportation professionals
will have better information to plan, program, and implement strategies or actions which
can better address the priorities and needs.
To implement Transportation Equity Policy 5, regional partners should take the following actions:
1. Collect data in a manner that facilitates looking at outcomes with an equity lens.
a. Collect localized disaggregated data.
b. Emphasize collecting as much qualitative data as quantitative data.
c. Collect data that is meaningful to marginalized communities.
2. Appropriately resource data collection and assessment to focus on outcomes with
an equity lens.
a. Acknowledge and recognize data collection and assessment methods will be
unfamiliar and new for many project managers and likely to be a necessary
but challenging to break convention.

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 3. Appropriately resource the development of a disparities baseline looking at
measures of affordability, safety, access, and environmental health to understand
disparities of marginalized communities, in particular people of color.
4. Conduct meaningful engagement with marginalized communities to supplement
and ground truth data and technical analysis findings.

Transportation Equity Policy 6. Evaluate transportation plans, policies, programs, and

investments to understand how they address transportation-related disparities and barriers
experienced by communities of color, people with low income and other marginalized
communities and the extent disparities are being eliminated.

To know and to be accountable to whether transportation plans, programs, policies and

strategies are making progress towards eliminating disparities, particularly in access,
safety, affordability, community health and any other transportation-related priority
identified by marginalized communities, evaluation under the lens of what disparities the
plans, policies, programs and strategies address is just as crucial as engagement,
prioritization and mitigation. The assessment process helps to understand effectiveness,
progression, monitoring and accountability in achieving the equitable transportation and
other associations RTP goals and objectives. Evaluation also provides transparency
towards what to expect as a result.
To implement Transportation Equity Policy 6, regional partners should take the following actions:
1. Resource evaluation methodology development appropriately.
a. Disaggregate and evaluate data system-wide, as well as by individual
project, program, or community.
b. Let the evaluation be led, guided, and verified by marginalized communities
and their lived experiences.
c. Ground truth evaluation results through engagement.
d. Utilize both qualitative and quantitative data in evaluation.
2. Be willing to use non-standard forms of evaluation. Clearly state assumptions and
recognize what the method may be testing and the limitations of the evaluation.
3. Set up a long-term feedback loop of evaluation and monitoring; evaluate at each
stage and monitor whether projected outcomes are coming to fruition and/or
whether plans, policies, programs, and strategies may need additional mitigations
or a course correction.

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Transportation Equity Policy 7. Create living-wage career pathways for people of color and
women into the construction industry and support the growth and participation of women
and people of color owned firms on capital projects throughout the transportation system.

The construction industry has seen tremendous growth in the last ten years and is one of
the fastest-growing industries in recent years, outpacing the rest of the economy. The
median wage for construction occupations is higher than the median wage across all
sectors in the greater Portland region. It is one of the remaining sectors where workers
can make a living-wage income without a higher education degree. At the same time the
construction industry is grappling with costly workforce shortages driven by an aging
workforce and reality that women and people of color face significant barriers in entering
the industry and building their careers.

Construction has been a racially homogenous industry, yet labor market data indicates a
shortage in skilled talent. Diversifying the construction workforce will not only help
create a stronger supply of needed workers for the industry, but it will also directly
address issues of poverty and economic mobility within communities of color and
working families in the region.

Transportation infrastructure projects can have a big impact on promoting equitable

growth in the region’s economy by providing job opportunities for people of color in the
construction trades. While federal and state laws have provisions which facilitate greater
access for minority, women-owned and disadvantaged businesses (MWDBE) to be part of
these contracting and construction opportunities, the construction industry has a
workforce which is not reflective of demographics. Yet it remains a sector that provides
access to living-wage careers for marginalized communities, particularly communities of
color.

The RTP is a long-range transportation blueprint for the capital investments needed to
accommodate existing needs and future population and employment growth. An
emphasis on the construction workforce is relevant to building out the transportation
system equitably and making progress towards reducing the disparities seen among
marginalized communities in terms of living-wage career opportunities and longer-term
income stability and affordability. By focusing public investments to advance contracting
and workforce equity in the construction trades, transportation infrastructure projects
can help mitigate wealth disparity gaps experienced by marginalized communities.

Metro’s Construction Career Pathways is a coordinated strategy for growing and

diversifying the region’s construction workforce. 5 This effort centers on a shared policy

5
Link to Metro webpage on Construction Career Pathways [Link]
leadership/diversity-equity-and-inclusion/construction-career-pathways

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framework that provides a roadmap for public agencies to work with labor unions,
workforce development organizations and contractors to create opportunities for women
and people of color in the construction workforce. As more public agencies in the region
join the effort, each agency’s individual workforce development efforts are better
positioned to succeed in cultivating a labor pool that strengthens their community and
reflects the populations they serve.
To implement Transportation Equity Policy 7 regional partners should take the following actions:
1. Use t inclusive hiring practices and contracting opportunities and formalize reporting
of minority, women-owned and disadvantaged businesses construction contracts on
all Metro-funded transportation projects.
2. For transportation investments programmed within the MTIP, particularly as part of
the construction phases, request from partners information about minority, women-
owned and disadvantaged business contracting and workforce diversity utilization.
3. Through partnership with Metro’s Diversity, Equity and Inclusion program, provide
information and resources to partners on ways to support and advance equity in
contracting and workforce.
4. Develop mechanisms to incentivize partners to pursue recruitment and retention
strategies on transportation projects that help grow and diversify the construction
workforce.
5. Encourage workforce diversity utilization through apprenticeships with marginalized
communities as part of contracts.
6. Partner with workforce development organizations to improve outreach, share
information and leverage resources that support and grow a diverse construction
workforce and contracting community.

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3.2.3 Safety and Security Policies

Eliminating traffic related deaths and life changing injuries (often defined as fatalities, and
severe or serious crashes) and increasing the safety and security of the transportation
system is a top priority of the Regional Transportation Plan (RTP), as is prioritizing safety
for people of color, people with low incomes, people with disabilities, people walking,
bicycling, and using motorcycles, youth, and older adults.

Transportation safety is protection from death or bodily injury form a motor-vehicle

crash while engaged in travel. Individual and public transportation security is protection
from intentional criminal or antisocial acts while engaged in trip making.

[Link] Regional Transportation Safety Strategy (2018)

The Regional Transportation Safety Strategy (“Safety Strategy”) identifies data-driven

strategies and actions to address the most common types of crashes and contributing
factors. 6 Key findings from the analysis of crash data from 2016-2020 can are in RTP
Chapter 4. Additional analysis can be found in the 2018 Metro State of Safety Report and
the Safety Strategy. 7

The Safety Strategy recommends six strategies to support achieving the region’s adopted
Vision Zero target for 2035, shown in Figure 3-3. Each strategy includes specific actions,
which can be found in the Safety Strategy. The strategies and actions are evidence-based
and were identified by a regional safety work group in response to analysis of crash data
in the 2018 Metro State of Safety Report and other sources. Refer to the Regional
Transportation Safety Strategy for detailed information on each of the strategies and
specific actions.

6
The Regional Transportation Safety Strategy, adopted in December 2018, is a topical plan of the Regional
Transportation Plan. Link to the Safety Strategy [Link]
plan
The 2018 Metro State of Safety Report is an appendix of the Safety Strategy. Link to the State of Safety Report
7

[Link]

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Figure 3-3 Regional transportation safety strategies

[Link] Using the Safe System approach

The Safety Strategy employs a Safe System approach with the goal of zero fatal and severe
injury traffic deaths. The Safe System approach originated in Sweden and now other
countries and many U.S. cities are using the framework. Similar frameworks are Vision
Zero (Sweden), Toward Zero Deaths (U.S.), Road to Zero Coalition (National Safety
Council), Safe System (New Zealand), and Sustainable Safety (Denmark).

The Safe System approach involves a holistic view of the transportation system and the
interactions among travel speeds, vehicles, road users and the road itself. It is an inclusive
approach that prioritizes safety for all user groups of the transportation system - drivers,
motorcyclists, passengers, pedestrians, bicyclists, and commercial and heavy vehicle
drivers. Consistent with the region’s long-term safety vision, the Safe System approach
acknowledges that people will make mistakes and may have road crashes, and that the
transportation system should therefore be designed so that crashes do not result in death
or serious injury. Street design emphasizes managing speeds for safety, access
management, medians, and maintaining separation between people walking and bicycling
and motor vehicles, access management and median separation of traffic.

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Figure 3-4 Components of the Safe System approach

Graphic showing The Safe System Approach elements of safe roads, safe vehicles, safe speed, safe road users,
and post-crash care.

Governments using the Safe System approach focus on preventing all fatal and severe
injury crashes and recognize that the responsibility for crash prevention resides not only
with roadway users but with transportation professionals and decision makers. Agencies
using the Safe System approach have been more effective in reducing traffic deaths and
severe injuries than more traditional approaches that focus on all crashes. 8 The Safe
System approach focuses on the following key guiding principles that shape how
stakeholders address transportation safety, shown in Figure 3-5. Refer to the Regional
Transportation Safety Strategy for detailed information on the Safe System approach.

8
Sustainable and Safe: A Vision and Guidance for Zero Road Deaths, World Resources Institute, Global Road
Safety Facility (2017)

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Figure 3-5 Guiding principles of the Safe System approach

Graphic showing the guiding principles of the safe system approach

[Link] Regional high injury corridors and intersections

Figure 3-6 shows the map of regional high injury corridors overlapping with Equity
Focus Areas. Metro and regional partners identify regional high injury corridors and
intersections to help prioritize safety near term investments. Metro updates this map
every five years. In the interim, transportation agencies and stakeholders may identify
other safety investments that warrant priority based on other data and analysis. The
needs assessment in Chapter 4 provides more detail on how this map was created, along
with other safety data.

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Figure 3-6 Regional high injury corridors and intersections

[Link] Safety and security policies

Regional Transportation Safety and Security Policies reflect the policy framework of the
Regional Transportation Safety Strategy. Implementation of the policies supports
achieving the regional Vision Zero target for 2035 and making travel in the region safer
and more secure for all people.

Policy 1 Focus safety efforts on eliminating traffic deaths and severe injury crashes
to achieve Vision Zero.

Policy 2 Prioritize safety investments, education and equitable enforcement on high

injury and high-risk corridors and intersections, with a focus on reducing
speeds and speeding.

Policy 3 Prioritize investments that benefit people with higher risk of being involved
in a serious crash, including people of color, people with low incomes,
people with disabilities, people walking, bicycling, and using motorcycles,
people working in the right-of-way, youth and older adults.

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Policy 4 Increase safety for all modes of travel and for all people through the
planning, design, construction, operation, and maintenance of the
transportation system, with a focus on reducing vehicle speeds.

Policy 5 Make safety a key consideration in all transportation projects and avoid
replicating or exacerbating a known safety problem with any project or
program.

Policy 6 Employ a Safe System approach and use data and analysis tools and
performance monitoring to support data-driven decision-making.

Policy 7 Utilize safety and engineering best practices to identify low-cost and
effective treatments that can be implemented systematically in shorter
timeframes than large capital projects.

Policy 8 Prioritize investments, education and enforcement that increase individual

and public security while traveling by reducing intentional crime, such as
harassment, targeting, and terrorist acts, and prioritize efforts that benefit
people of color, people with low incomes, people with disabilities, women
and people walking, bicycling, and taking transit.

Policy 9 Make safety a key consideration when defining system adequacy (or deficiency)
for the purposes of planning or traffic impact analysis.

Safety Policy 1. Focus safety efforts on eliminating traffic deaths and severe injury crashes
to achieve Vision Zero.

To reach the goal of eliminating deaths and severe injuries from traffic crashes, this policy
directs safety related efforts to focus on fatal and severe injury crashes, as opposed to all
crashes. Focusing on serious crashes is a key tenant of the Safe System approach. It entails
identifying where serious crashes occur and focusing on those locations, identifying the
risk factors involved in serious crashes and addressing and eliminating those risks,
focusing enforcement and education on high-risk behaviors that lead to serious crashes
and less or no enforcement or education on low-risk behaviors. When communities use
enforcement, precautions must be implemented to ensure equitable actions and
outcomes.

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Safety Policy 2. Prioritize safety investments, education and equitable enforcement on high
injury and high-risk corridors and intersections, with a focus on reducing speeds and
speeding.

This policy directs safety investments, education, and equitable enforcement to be

prioritized on the corridors where the most serious crashes have occurred or have a risk
of occurring (due to identified risk factors such as lack of roadway separation or excessive
speeding). This policy approach, prioritizing corridors where deadly crashes are or could
occur, more effectively uses limited resources where the most serious issues are.
Additionally, this policy emphasizes the systemic approach to safety to address known
safety risk factors corridor wide to prevent serious crashes from occurring in the future.

Safety Policy 3. Prioritize investments that benefit people with higher risk of being involved
in a serious crash, including people of color, people with low incomes, people with
disabilities, people walking, bicycling, and using motorcycles, people working in the right-of-
way, youth, and older adults.

This policy is based on the Safe System approach of prioritizing safety efforts on people
with the highest risk of dying in a traffic crash as a key strategy to eliminating serious
crashes overall. This policy also helps implement Metro’s Strategic Plan for Advancing
Equity, Diversity and Inclusion.

Safety Policy 4. Increase safety for all modes of travel and for all people through the
planning, design, construction, operation, and maintenance of the transportation system,
with a focus on reducing vehicle speeds.

This policy requires that stakeholders integrate transportation safety into every aspect of
the transportation system. It is a key element of the Safe System approach which takes a
systemic and holistic approach. Safe travel speeds are a core element of achieving Vision
Zero. Speed limits in Safe System approach are based on aiding crash avoidance and a
human body’s limit for physical trauma. An unprotected pedestrian hit at over 20mph has
a significant risk of death or life-changing injury. A car in a side-on collision can protect its
occupants up to around 30mph; a car in a head-on collision up to around 40mph.
Establishing survivable speeds on streets where people using different modes at variable
speeds and with different levels of physical protection are essential. Additionally, a
diversity of users must be considered as the system is developed. For example, people of
color, older adults and children may have different needs that must be addressed at every
phase.

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Safety Policy 5. Make safety a key consideration in all transportation projects and avoid replicating
or exacerbating a known safety problem with any project or program.

While most policies are proactively focused on improving safety, this policy requires that
transportation projects and programs clearly evaluate the impacts on all users of the
transportation system and do not negatively impact any of those users by either
replicating something which has been shown to increase safety problems for roadway
users or making a current safety issue worse.
Safety Policy 6. Employ a Safe System approach and use data and analysis tools and performance
monitoring to support data-driven decision-making.

Transportation agencies have proven that the Safe System approach reduces serious
crashes. The approach is based on data driven strategies and actions. Collecting,
maintaining, and analyzing data on a regular basis is critical to focusing investments
where they will be most effective. Additionally, monitoring progress and assessing the
outcome of investments in safety is crucial to learning from the past and improving in the
future.

Safety Policy 7. Utilize safety and engineering best practices to identify low-cost and
effective treatments that can be implemented systematically in shorter timeframes than
large capital projects.

Many solutions to improve safety are inexpensive. This policy prioritizes addressing
safety problems on a corridor level sooner rather than later to prevent serious crashes
from occurring in the future. Rather than postponing safety interventions until a larger
and more expensive project can be funded this policy directs that low-cost and effective
treatments be implemented first.

Safety Policy 8. Prioritize investments, education and equitable enforcement that increase
individual and public security while traveling by reducing intentional crime, such as
harassment, targeting, and terrorist acts, and prioritize efforts that benefit people of color,
people with low incomes, people with disabilities, women and people walking, bicycling,
and taking transit.

Individual and personal security while traveling has an important relationship to

transportation safety, especially for people of color. Fear of harassment or being targeted
can deter people of color from walking, bicycling, or using transit and may increase the
use of motor-vehicle transportation. Though individual and public security can be
challenging to address, a variety of approaches are needed to create a safe and welcoming
transportation system, including: collecting data, utilizing crime prevention through
environmental design, taking into account a diversity of users when developing and
operating the transportation system, educating people to look out for and care for one
another, designing security into projects (such as street lighting, visibility, call boxes),

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equity training for public safety and transportation professionals, and including a wide
range of groups in design and decision making.

Safety Policy 9. Make safety a key consideration when defining system adequacy (or
deficiency) for the purposes of planning or traffic impact analysis.
This policy specifies that safety data (including disparities in crash-related injuries and
level of physical activity impacted by lack of safe places to walk and bicycle), analytical
tools and metrics must be part of the evaluation when defining the adequacy of capacity
on the transportation system.

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3.2.4 Climate Action Policies and Resilience Policies

Climate change may be the defining challenge of this century. Global climate change poses
a growing threat to our communities, our environment, and our economy, creating
uncertainties for the agricultural, forestry and fishing industries as well as winter
recreation. The planet is warming, and we have less and less time to act. Greater
Portland’s future climate is expected to include warmer winters with more intense rain
events and hotter, drier summers with an increased frequency of high heat days. Other
documented effects include rising sea levels, shrinking glaciers, and changes to growing
seasons and the distribution of plants and animals. While addressing the primary cause of
climate change – carbon emissions, remains a crucial component of the region’s climate
work, preparing for the impacts of a changing climate is also necessary.

Warmer temperatures will affect the service life of transportation infrastructure, and the
more severe storms that are predicted will increase the frequency of landslides and
flooding. Consequent damage to roads and rail infrastructure will compromise system
safety, disrupt mobility, and hurt the region’s economic competitiveness and quality of
life. Our ability to respond will have unprecedented impacts on our lives and our survival.

Transportation sources account for 35 percent of greenhouse gas emissions in Oregon,

largely made up of carbon dioxide (CO2). Since 2006, the state of Oregon has initiated
actions to respond including directing the greater Portland region to develop and
implement a strategy for reducing greenhouse gas emissions from cars and small trucks.

[Link] Climate Smart Strategy (2014)

The Regional Transportation Plan (RTP) is a key tool for the greater Portland region to
implement the adopted Climate Smart Strategy and achieve greenhouse gas emissions
reduction targets adopted by the Land Conservation and Development Commission in
2012, 2017, and 2022.

As directed by the Oregon Legislature in 2009, the Metro Council and the Joint Policy
Advisory Committee on Transportation (JPACT) developed and adopted a regional
strategy to reduce per capita greenhouse gas emissions from cars and small trucks by
2035 to meet state targets. Adopted in December 2014 with broad support from
community, business and elected leaders, the Climate Smart Strategy relies on policies
and investments that have already been identified as local priorities in communities
across the greater Portland region. Adoption of the strategy affirmed the region’s shared
commitment to provide more transportation choices, keep our air clean, build healthy and
equitable communities, and grow our economy − all while reducing greenhouse gas
emissions.

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The analysis of the adopted strategy demonstrated that with an increase in transportation
funding for all modes, particularly transit operations, the region can provide more safe
and reliable transportation choices, keep our air clean, build healthy and equitable
communities and grow our economy while reducing greenhouse gas emissions from light-
duty vehicles as directed by the Legislature. It also showed that a lack of investment in
needed transportation infrastructure will result in falling short of our greenhouse gas
emissions reduction goal and other desired outcomes. The Land Conservation and
Development Commission approved the region’s strategy in May 2015.

[Link] Climate mitigation policies

The Climate Smart Strategy is built around nine policies to demonstrate climate
leadership by reducing greenhouse gas emissions from cars and small trucks while
making our transportation system safe, reliable, healthy, and affordable. The policies
listed below complement other Regional Transportation (RTP) policies related to equity,
safety, transit, biking and walking, use of technology and system and demand
management strategies. These policies aim to slow the effects of climate change by
reducing greenhouse gas emissions (also known as climate mitigation”) while also
preparing for the impacts the region will experience.

Policy 1 Implement adopted local and regional land use plans and strategies to reduce
vehicle miles traveled per capita and related greenhouse gas emissions to
meet regional targets.

Policy 2 Prioritize transportation investments that make transit convenient, frequent,

accessible and affordable to significantly increase transit ridership.

Policy 3 Prioritize transportation investments that make biking and walking safe,
accessible and convenient to achieve walking and bicycling system
completion and mode share targets.

Policy 4 Make streets and highways safe, efficient, reliable and connected.

Policy 5 Prioritize use of technology to actively manage the transportation system and
ensure that new and emerging technology affecting the region’s
transportation system supports shared trips and other Climate Smart Strategy
policies and strategies.

Policy 6 Provide information and financial incentives to expand the use of travel
options and reduce vehicle miles traveled.

Policy 7 Manage parking in mixed-use centers and corridors to reduce the amount of
land dedicated to parking, encourage parking turnover, increase shared trips,
biking, walking and transit use, reduce vehicle miles traveled, increase
housing and job production and generate revenue.

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Policy 8 Support Oregon’s transition to cleaner fuels, more fuel-efficient vehicles and
electric vehicles in recognition of the external impacts of carbon and other
vehicle emissions.

Policy 9 Secure adequate funding for transportation system investments necessary to

implement the Climate Smart Strategy and increase the region’s
preparedness for and resilience to climate change and natural hazard
impacts.

[Link] Climate Smart Strategy actions

The Climate Smart Strategy includes a comprehensive toolbox of more than 200 specific
actions that can be taken by the state of Oregon, Metro, cities, counties, transit providers
and others to support implementation. These supporting actions are summarized in the
Toolbox of Possible Actions (2015-2020) adopted as part of the Climate Smart Strategy. 9
The actions support implementation of adopted local and regional plans and, if taken, will
reduce greenhouse gas emissions and minimize the region’s contribution to climate
change in ways that support community and economic development goals. The Climate
Smart Strategy’s Toolbox of Possible Actions was developed with the recognition that
existing city and county plans for creating great communities are the foundation for
reaching the state target and that some tools and actions may work better in some
locations than others. As such, the toolbox does not mandate adoption of any policy or
action. Instead, it emphasizes the need for many diverse partners to work together to
begin implementation of the strategy while retaining the flexibility and discretion to
pursue the actions most appropriate to local needs and conditions.

9
Climate Smart Strategy Toolbox of Possible Actions, 2014
[Link]

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Graphic depicting Climate Smart seven high and medium impact greenhouse gas reduction strategies.

Local, state, and regional partners are encouraged to review the toolbox and identify
actions they have already taken and any new actions they are willing to consider or
commit to in the future. Updates to local comprehensive plans and development
regulations, transit agency plans, port district plans, and regional growth management
and transportation plans present ongoing opportunities to consider implementing the
actions recommended in locally tailored ways.

[Link] Climate Smart Strategy monitoring

The Climate Smart Strategy has performance measures and performance monitoring
targets for tracking implementation and progress. The purpose of the performance
measures and targets is to monitor and assess whether key elements or actions that make
up the strategy are being implemented, and whether the strategy is achieving expected
outcomes. If an assessment finds the region is deviating significantly from the Climate
Smart Strategy performance monitoring targets, then Metro will work with local, regional,
and state partners to consider the revision or replacement of policies and actions to
ensure the region remains on track with meeting adopted targets for reducing
greenhouse gas emissions.

Appendix J provides a progress report on implementation. Performance outcomes are

included in Appendix J and Chapter 7. More investment, actions and resources are

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needed to achieve mandated greenhouse gas emissions reductions defined in OAR 660-
044-0060.

[Link] Transportation preparedness and resilience policies

Preparedness and resilience have broad implications across all sectors of the economy
and communities in the region. Natural disasters can happen anytime, affecting multiple
jurisdictions simultaneously. The region needs to be prepared to respond quickly,
collaboratively, and equitably, and the transportation system needs to be prepared to
withstand these events and to provide needed transport for evacuation, fuel, essential
supplies, and medical transport. Planning for post-disaster recovery is also critical to
ensure that communities and the region recover and rebuild important physical
structures, infrastructure, and services, including transportation – it can make
communities and the region stronger, healthier, safer and more equitable.

Policy 1 Designate and maintain regional emergency transportation routes that, in the
case of a major regional emergency or natural disaster, would be prioritized
for rapid damage assessment and debris-removal.

Policy 2 Consider climate and other natural hazard-related risks during transportation
planning, project development, design, and management processes.

Policy 3 Optimize operations and maintenance practices that can help lessen impacts
on transportation from extreme weather events and natural disasters. 10

Policy 4 Integrate green infrastructure into the transportation network to avoid,

minimize and mitigate negative environmental impacts of climate change,
natural disasters, and extreme weather events.

Policy 5 Protect and avoid natural areas and high value natural resource sites,
especially the urban tree canopy and other green infrastructure, to slow
growth in carbon emissions from paved streets, parking lots and carbon
sequestration and address the impacts of climate change and extreme
weather events, such as urban heat island effects and increased flooding.

Policy 6 Avoid transportation-related development in hazard areas such as steep

slopes and floodplains that provide landscape resiliency and which are also
likely to increase in hazard potential as the impacts of climate change
increase.

10
Examples include more frequent cleaning of storm drains, improved plans for weather emergencies, closures
and rerouting, traveler information systems, debris removal, early warning systems, damage repairs and
performance monitoring.

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Climate change, natural disasters, such as earthquakes, urban wildfires and hazardous
incidents, and extreme weather events present significant and growing risks to the safety,
reliability, effectiveness and sustainability of the region’s transportation infrastructure
and services. Flooding, extreme heat, wildfires and severe storm events endanger the
long-term investments that federal, state, and local governments have made in
transportation infrastructure. Changes in climate have intensified the magnitude,
duration, and frequency of these events for many regions in the United States, a trend that
is projected to continue. There is much work going on locally, regionally, statewide and
across the country to address these risks.
Regional collaboration and disaster preparedness

The Regional Disaster Preparedness Organization (RDPO) is a partnership of government

agencies, non-governmental organizations, and private-sector stakeholders in the
Portland metropolitan area collaborating to increase the region’s resilience to disasters.
RDPO’s efforts span across Clackamas, Columbia, Multnomah, and Washington counties in
Oregon and Clark County in Washington.

According to the 2013 Oregon Resilience Plan, Oregon’s buildings, and lifelines
(transportation, energy, telecommunications, and water/ wastewater systems) would be
damaged so severely that it would take three months to a year to restore full service in
areas such as the Portland region. More recently, a 2018 report from the Oregon
Department of Geology and Mineral Industries (DOGAMI) on the Portland region
describes significant casualties, economic losses, and disruption in the event of a large
magnitude Cascadia subduction zone (CSZ) earthquake.

While transportation infrastructure is designed to handle a broad range of impacts based

on historic climate patterns, more planning and preparation for climate change,
earthquakes and other natural disasters and extreme weather events is critical to
protecting the integrity of the transportation system and improving resilience for future
hazards.

In 2021 the Oregon Transportation Systems project assessed the resilience of Oregon’s
roadway, airport, and maritime port transportation system to a Cascadia Subduction Zone
(CSZ) earthquake, and the ability of those system to support post-disaster response and
recovery. A key finding is that very few airports and marine ports have conducted seismic
vulnerability analyses of their facilities. More analysis is needed to better understand and
enhance the resilience of these facilities to more efficiently and effectively support
incident response.

Between 2019 and 2021, Metro and RDPO partnered to update the Regional Emergency
Transportation Routes (RETR) for the five-county Portland-Vancouver metropolitan

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region (last updated in 2006). Over 300 miles of new routes were added. Regional
Emergency Transportation Routes are travel routes that, in the case of a major regional
emergency or natural disaster, would be prioritized for rapid damage assessment and
debris-removal. These routes would be used to move people, resources, and materials,
such as first responders (e.g., police, fire and emergency medical services), patients,
debris, fuel and essential supplies. These routes are also expected to have a key role in
post-disaster recovery efforts.

The project developed a regionally accepted network that provides adequate connectivity
to critical infrastructure and essential facilities, as well as the region’s population centers
and vulnerable communities. Over 75% of state and regional critical infrastructure and
essential facilities are connected. Partners have established a comprehensive regional GIS
database and online RETR viewer for current and future planning and operations. The
data and on-line viewer provide valuable resources to support transportation resilience,
recovery, and related initiatives in the region. Figure 3-7 shows a map of the RETRs and
State Seismic Lifeline (SSL) routes. Regional partners identify these routes to help
prioritize them for near term investment.

In addition to implementing the resilience policies, potential opportunities for future

regional collaboration in support of transportation preparedness and resilience include:
• Partnering with the RDPO on a second phase of the Regional ETR update to prioritize
routes and develop operational guidelines for owners and operators. See Chapter 8 for
more information.
• Conducting a vulnerability assessment for the region, documenting climate and other
natural hazard-related risks to the region’s transportation system and vulnerable
populations, and potential investments, strategies, and actions that the region can
implement to reduce the vulnerability of the existing transportation system and
proactively increase the transportation system’s resiliency.

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Figure 3-7 Regional emergency transportation routes (ETR) map

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3.2.5 Pricing Policies

Transportation pricing is a tool that can help our region reach its goals of better, faster
transit, cleaner air, fewer hours sitting in traffic, and more equitable access to jobs and
opportunities. To realize these outcomes, pricing programs will need to be carefully
designed to ensure the process to develop them is equitable, revenue is reinvested
equitably and to support regional goals, diversion on local streets is mitigated, and pricing
strategies are interoperable throughout the region.
What is transportation pricing?

Transportation pricing is the use of a pricing mechanism, such as tolls or parking fees, to
reduce traffic congestion and greenhouse gas emissions, encourage a shift to travel via
different modes, a different route, or a different time of day, and raise revenue for
transportation investments and mitigation for impacts resulting from pricing. The
policies in this section apply to vehicle miles traveled fees, cordon pricing, and roadway
pricing; parking pricing is addressed in the Climate mitigation policies in Section [Link].

While parking pricing has proven to be an effective strategy in the region for many years,
cordons, roadway pricing, and other pricing strategies are only beginning to be discussed

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and implemented as a strategy in the greater Portland region. However, these strategies
have been effective in cities around the world. For many leaders and government agencies
in the Portland metro region recognized pricing as a needed, high-impact, tool in the 2018
Regional Transportation Plan (RTP) and other plans. 11

Table 3-3 outlines which local, regional, and state agencies could potentially implement
various types of pricing strategies based on Oregon state law. Other federal, state, or local
laws may provide additional guidance or restrictions on the use of pricing and the use of
pricing revenues.
Table 3-3 Pricing and implementing agency
Type of Pricing Definition Implementing Agency
Road Usage Charge / Drivers pay a fee for every mile they State DOT, potentially local
Vehicle Miles Traveled travel roadway authorities
Fee
Cordon Pricing Drivers pay a fee to enter an area, City, County
like downtown Portland (and
sometimes pay to drive within that
area)
Roadway Pricing and Drivers pay a fee or toll to drive on a Local Roads: City, County
Tolling particular road, bridge, or highway
Highways and Freeways: State
DOT

Why is pricing an important strategy for our region?

Congestion is a problem in the Portland metro region as outlined in the Chapter 4 or the
RTP. Changing travel patterns and a growing population mean more traffic and less
freedom to travel reliably around the region. Congestion can also have significant
economic, social, and environmental impacts.
• Growing single occupancy vehicle miles traveled (VMT) leads to congestion.
• Greenhouse gas emissions are on the rise.
• Congestion impacts Metro’s Equity Focus Areas most significantly.
• Travel patterns for people and goods are unreliable due to congestion.
• Our region is growing.

11
2018 Regional Transportation Plan, TSMO Strategic Plan (2010), Climate Smart Strategy (2014), The Federal
Congestion Management Process, 2021 City of Portland Pricing Options for Equitable Mobility Final Report, 2018
Oregon Department of Transportation Value Pricing Feasibility Analysis.

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How can pricing help our region?

Transportation investments in the greater Portland region have a long history of

contributing to racial inequity and neighborhood displacement. Decades ago, public
agencies planned and built new highways that cut through Black communities, splitting
neighborhoods, and contributing to poor air quality, noise pollution and safety issues.
Transit investments have also been made without complementary affordable housing
strategies, leading to gentrification and further displacement.

Today, while the region’s residents all feel the impacts of congestion, historic inequities in
the transportation system amplify impacts on people of color and low-income people:
• Housing costs are increasing faster than incomes, pushing those with lower incomes
to seek housing further away from the center of the region and making travel
distances longer for people of color and low-income people.
• Communities of color and low-income communities have longer commute times that
are made slower and more unreliable when roadways are congested.
• Major roads and freeways often run through communities of color and low-income
communities, resulting in disproportionately high rates of air pollution, chronic
illnesses, and traffic-related injuries and fatalities.

Pricing can be a key tool for jurisdictions as they seek to meet state, regional, and local
goals around mobility, climate, safety, equity, and a thriving economy.

Pricing that is designed and implemented through an equity and climate change lens has
the potential to transform transportation in our region in a variety of ways. While pricing
programs introduce new costs to users, they also lead to more efficient use of streets and
highways and can help address current and historic inequities borne by people of color
and people with low incomes.
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Pricing has been shown to encourage use of transit or other modes and reduce overall
vehicle miles traveled (VMT). Lower VMT results in decreased congestion, reduced travel
times for personal vehicles, freight and buses, lower greenhouse gas emissions, and
localized air quality impacts. Pricing is more likely to be successful in areas where transit
service elements are already well established and is improved in conjunction with pricing.

Pricing can also have positive impacts on safety. A combination of lower VMT, as a result
of pricing, and reinvestment of pricing revenue in projects that increase safety, can, in the
long term, lead to decreases in crashes and injuries in and around priced facilities or
areas.

Additionally, for many jurisdictions, pricing may be identified as a tool to raise revenue
for specific projects and be a key element of a funding plan. This could include, for
example, replacement of an aging bridge, or investments in multimodal infrastructure and
transit supportive elements or amenities. However, in addition to raising revenue for
specific projects, a program can successfully meet state, regional, and local goals by:
• Reinvesting revenue where it matters most. If designed thoughtfully, pricing
programs that have built equity into the program can introduce progressive fee
structures and reinvest revenue in the people and places that have historically been,
and continue to be, the most negatively impacted.
• Reinvesting revenue to support our region’s goals. Revenue collected from pricing
programs can be reinvested to enhance transit service elements and access, safety
improvements, and walking and bicycling networks. It can also be used to provide
incentives and subsidies to increase the number of people biking, walking, and taking
transit for more trips. With properly designed pricing programs, our region can have

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 better, faster transit, cleaner air, fewer hours sitting in traffic, and more equitable
access to jobs and opportunities.

Benefits to Freight and Businesses

• Pricing strategies can help freight and businesses succeed by reducing congestion on
highways and local roads:
• Pricing can benefit freight, especially truck transportation, as it supports a more reliable
system.
• Pricing can encourage people to use other forms of transportation to travel and leave
highways open for people and businesses, like freight, who do not have other options.
• Pricing can support lowered cost of doing business – time is money.

[Link] Best practices for revenue reinvestment

Equitable revenue reinvestment is a critical consideration from the outset of a pricing

program. Reinvestment strategies should be guided by the purpose of the program, the
expected costs and benefits, and input from community members impacted by the
program. Revenue reinvestment should be focused on neighborhoods that do not have or
could lose access to the priced facility or area. Increasing access to the priced facility or
area, especially for places with limited access today or places that would see reduced
access without reinvested revenues, should be a focus. Part of the revenue from pricing
may need to be spent on operations, maintenance, and facility investment.

Key considerations related to revenue reinvestment include:

• Reinvestment should be prioritized in areas designated as Metro’s Equity Focus Areas
most affected by pricing programs.
• Revenues collected through the pricing program should be reinvested in a manner
that helps meet state, regional, and local goals related to reductions in greenhouse gas
emissions and congestion while improving mobility and safety.
• Revenue should not be reinvested in infrastructure solely for single occupancy
vehicles but should be invested to improve the entire multimodal transportation
system.
• Revenue should be reinvested in the region.

After paying for the administration and/or operating costs of a pricing program, revenue
could be reinvested in several ways, as shown in Table 3-4. Implementing agencies will
need to consider any state constitutional restrictions to revenue reinvestment, or other

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limitations based on federal or state funding or program approvals, based on the type of
pricing program established. Agencies may use pricing to raise money for other things,
like road improvements, seismic operations, and operations and maintenance.
Table 3-4 Potential Options for Revenue Reinvestment
Category Description Target Area or Population
Transit
Improved facilities, stops, Regional
passenger amenities, transit
Infrastructure & speed and Local communities especially equity
priority treatments, express
reliability improvements areas, for example, Metro’s Equity
services, expanded routes, and
similar improvements Focus Areas

Operation and Operation and maintenance of Regional

maintenance existing and future transit assets
and services
Active Transportation
Improved bike, pedestrian, or Regional
Access to priced facility or micromobility access to transit
area or priced facility or area directly From/to equity zones, for example,
Metro’s Equity Focus Areas
Neighborhood access Improved bike, pedestrian, or From equity zones, for example
micromobility access to transit Metro’s Equity Focus Areas, to transit
or neighborhood activity centers or neighborhood activity centers
such as shopping centers and
employment hubs
First/last mile to key Improved bike, pedestrian, or Regional
employment hubs micromobility access to
employment hubs from transit

Diversion mitigation Prioritize safety enhancements Neighborhoods impacted by

on the high crash network and diversion
transit service elements along
areas impacted by diversion
Mode Shift and Single Occupancy Vehicle Alternative Programs
Commuter Credits Benefit to users of the pricing Regional; higher subsidy for transit
system who swipe their transit deprived communities and vulnerable
card during peak hours rather populations
than drive
Free or discounted transit pass Regional; higher subsidy for transit
or cash on transit card, i.e., deprived communities and vulnerable
Transit subsidy TriMet’s Fare Relief Program populations

Other programs Electric vehicle (EV) carshare Regional; higher subsidy for transit
subsidy, bikeshare subsidy, deprived communities and vulnerable
micromobility subsidy, carpool populations

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Category Description Target Area or Population
benefit, benefit to drivers of EV
vehicles
Priced Facility
Operations and Operations and maintenance of Priced facility
Maintenance priced road
Infrastructure investment For tolled facilities, designed to Priced facility
be paid for by the pricing
revenue

Potential Revenue Opportunities and Limitations

Depending on the pricing model, the use of revenue generated from a pricing program may be subject
to legal limits, Federal law and other requirements must be followed. For example, Oregon
Constitution Article IX Section 3a limits the use of revenue from taxes on motor vehicle use and fuel.
The principle underlying this language is that special taxes paid only by highway users should be used
only for highway purposes. Whether a particular pricing model is subject to this constitutional
restriction is determined by Oregon courts on a case-by-case basis. Recently, the Oregon Supreme
Court concluded that Article IX section 3a’s limit on use of tax revenue does not apply to a privilege tax
imposed on vehicle dealers for the privilege of engaging in the business of selling taxable motor
vehicles at retail. The Court found that the privilege tax was not based on the status of motor vehicle
ownership, but rather on the activity of selling motor vehicles. Jurisdictions considering pricing should
review all potential legal limits and structure the pricing model with these limits in mind.

[Link] Pricing policies

Pricing policies apply to the planning, implementation, monitoring and evaluation of

pricing programs and projects in the region, as defined in Section 3.1.

Policy 1 Use pricing to improve reliability and efficiency of the transportation

network, reduce VMT per capita, and increase transportation options.

Policy 2 Center equity and affordability into pricing programs and projects from the
outset.

Policy 3 Address traffic safety and the safety of users of all travel modes, both on the
priced system and in areas affected by diversion.

Policy 4 Minimize diversion impacts created by pricing programs and projects prior to
implementation and throughout the life of the pricing program or project.

Policy 5 Reduce greenhouse gas emissions and vehicle miles travelled per capita while
increasing access to low-carbon travel options.

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Policy 6 Coordinate technologies and pricing programs and projects to make pricing a
low-barrier, seamless experience for everyone who uses the transportation
system and to reduce administrative burdens.
Pricing Policy 1. Use pricing to improve reliability and efficiency of the transportation network,
reduce VMT per capita, and increase transportation options.

The Metro Regional Congestion Pricing Study found that pricing has the potential to help
the greater Portland region improve mobility and manage congestion. Pricing programs
should be designed and implemented to maximize benefits related to improved access to
jobs and community places, shift to sustainable modes of travel, and overall affordability.

Investments in transit and transit-supportive elements have been shown to improve

regional mobility, especially in terms of access to jobs. Future transit investments, and
investments into other modal alternatives, should take into consideration the geographic
distribution of low-income populations (who may have less automobile access), existing
access to jobs via transit, people who commute outside of peak periods, and people who
trip-chain (i.e.: making multiple stops during one trip, such as dropping children off at
school on the way to work). Policymakers and future project owners and operators
should consider how mobility improvements will be received by populations and areas
that have been historically marginalized. Mobility improvements can be measured by
reduced peak period travel times, reduced daily vehicle miles traveled (VMT), reduced
percentage of total daily trips undertaken by drivers without passengers, increased
number of total daily transit trips, and total vehicle hours of delay during peak PM
periods.
To implement Pricing Policy 1, agencies developing pricing programs or projects should take the
following actions:
1. Set rates for pricing at a level that will manage congestion, reduce VMT per capita, and
improve reliability on the priced facility and in areas affected by diversion. ORS 383
delegates authority to the Oregon Transportation Commission (OTC) to set pricing rates for
state highways in accordance with state legislation.
2. Collaborate with relevant state, regional, and local agencies and communities when setting,
evaluating, and adjusting program or project specific goals.
3. Reinvest a portion of revenues from pricing into modal alternatives both on and off the
priced facility that encourage mode shift and VMT reduction per capita consistent with
Federal and State law. Examples include, but are not limited to, transit improvements,
bicycle and pedestrian improvements, and improvements to local circulation.
4. Identify opportunities to partner with other agencies to fund or construct transit, bike, and
pedestrian improvements. Work with transit agencies and other jurisdictional partners,
including consideration of opportunities identified in the High Capacity Transit Strategy and
Regional Transit Strategy, to determine additional revenue needs and pursue funding
needed to develop transit-supportive elements, expand access to transit, and to ensure

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 equitable investments, particularly in cases where such improvements cannot be funded
directly by pricing revenues due to revenue restrictions.
5. Consider non-infrastructure opportunities to encourage mode shift and reduce VMT per
capita, including commuter credits, funding for transit passes, bikeshare and/or
micromobility subsidies, partnerships with employer commuter programs, and carpooling /
vanpooling. Consider higher benefits, subsidies, discounts or exemptions for people with
low-income or other qualifying factors based on equity analysis.

Pricing Policy 2. Center equity and affordability into pricing programs and projects from the
outset.

The Metro Regional Congestion Pricing Study found that pricing strategies have the
potential to help the greater Portland region improve racial equity and benefit
marginalized communities. Our current transportation funding system is inequitable.
Regressive funding sources such as fixed tax rates and fees disproportionately impact
low-income motorists, and negative health impacts from high automobile reliance
disproportionately harm Black, Indigenous, and other people of color (BIPOC), federally
recognized tribes, and low-income communities.

Pricing programs with an equity framework should aim to increase access to opportunity,
provide affordable options, create healthier and safer communities, and reduce income
inequality and unemployment. Pricing has the potential to offer a suite of affordability
programs, such as rebates, exemptions, or other investments. Reinvestment should be
prioritized in areas designated as Metro’s Equity Focus Areas most affected by pricing
programs.

Policymakers and future project owners and operators should carefully consider how the
benefits and costs of pricing impact different geographic and demographic groups. If not
conducted thoughtfully, pricing could compound past injustices and harm Black,
Indigenous, and other people of color (BIPOC), federally recognized tribes, and low-
income communities. By focusing engagement at every step in the process on historically
impacted residents, agencies can reduce harm and increase benefits. The policy illustrates
how equity can be incorporated into pricing programs.
To implement Policy 2, agencies developing pricing programs or projects should take the following
actions:
1. Conduct public engagement in a variety of formats, including formats that
accommodate all abilities, all levels of access to technology, and languages other than
English. Begin engagement at an early stage and re-engage the public in a meaningful
manner at multiple points throughout the process.

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2. Engage equity groups, people with low-income, and people of color in a co-creation
process, beginning at an early stage, to help shape goals, outcomes, performance
metrics, and reinvestment of revenues.
3. Use a consistent methodology across implementing agencies for defining equity
groups and equity areas for pricing programs and projects, including but not limited
to the methodology used for establishing the Equity Focus Areas. A consistent
methodology for documenting benefits and burdens of pricing for equity groups,
people with low-income, people of color, and equity areas should also be established
across agencies. The methodology should consider a variety of factors, such as
implementing agency, costs to the user, travel options, travel time, transit reliability
and access, diversion and safety, economic impacts to businesses, noise, access to
opportunity, localized impacts to emissions, water and air quality, and visual impacts.
4. Establish feedback mechanisms, a communication plan, and recurring regular
engagement over time with the public, and with equity groups that were involved in
the co-creation process.
5. Provide a progressive fee structure including elements such as exemptions, credits, or
discounts for qualified users. Base eligibility on inclusion in one or more population
categories, such as low-income, and minimize barriers to qualification by building on
existing programs or partnerships where applicable. Target outreach for enrollment
in a discounts, credits, or exemptions in equity areas and communities with higher-
than-average shares of people with low income and people of color.
6. Create varied and accessible means of payment and enrollment, including options for
people without access to the internet or banking services.
7. Reinvest a portion of revenues from pricing into communities with high proportions
of people with low-income and people of color, and/or in Equity Focus Areas,
consistent with Federal and State law. Use of these revenues should meet the
transportation-related needs identified by the equity communities and people most
impacted. Examples include commuter credits and free or discounted transit passes,
or improved transit facilities, stops, passenger amenities, and transit priority
treatments.
8. Enforcement of pricing and fine structures for non-payment should be designed to
reduce the potential for enforcement bias and to minimize burdens on people with
low incomes.
9. Create a process to measure how pricing programs achieve the actions items listed
above to demonstrate accountability.

Pricing Policy 3. Address traffic safety and the safety of users of all travel modes, both on
the priced system and in areas affected by diversion.

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The Metro Regional Congestion Pricing Study found that pricing has a strong potential to
help the greater Portland region improve safety outcomes and meet the safety priorities
outlined in the Regional Transportation Plan. Pricing programs can improve safety by
reinvesting revenue into locally supported traffic safety improvements. The study
recommends focusing safety improvements on eliminating traffic deaths and serious
injuries on city streets, or a Vision Zero approach.

Safety challenges vary across the region. Safety improvements should be assessed at a
project scale and built into a pricing programs’ definition to ensure that the core of the
project addresses these community needs. Detailed project-scale analysis should provide
insight into where safety investments are needed and should address any project-related
safety concerns. Safety outcomes of a pricing program can be measured by the level of
revenue reinvestment in improvements that address fatalities and serious injuries on
high injury corridors or roadways.
To implement Pricing Policy 3, agencies developing pricing programs or projects should take the
following actions:
1. Collaborate with relevant state, regional, and local agencies and communities when
identifying traffic safety impacts and selecting mitigations associated with pricing.
2. Use a data-driven approach to identify potential traffic safety impacts on the priced
system and in areas affected by diversion both during and after implementation of
pricing programs and projects; monitor with real-time data after implementation.
3. Context-specific monitoring and evaluation programs should be conducted by
implementing agencies in coordination with partner agencies and be on-going and
transparent. Establish feedback mechanisms, incident resources, and a
communication plan for the community and decision makers.
4. Adjust safety strategies in coordination with partner agencies based on monitoring
and evaluation findings.
5. Reinvest a portion of revenues on the priced system and in areas affected by diversion
to address safety issues caused by pricing programs and projects, consistent with
Federal and State law. For example, through investments in transit, bike, and
pedestrian improvements, or other investments in known crash reduction factors.
6. Pricing programs and projects should strive to reduce fatalities and serious injuries by
aligning with local, state, and regional safety and security policies.

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Pricing Policy 4. Minimize diversion impacts created by pricing programs and projects prior
to implementation and throughout the life of the pricing program or project.

Diversion is the movement of automobile trips from one facility to another because of
pricing implementation. All trips that change their route in response to pricing are
considered diversion, regardless of length or location of the trip, or whether they divert to
or from the priced facility.

The Metro Regional Congestion Pricing Study found that pricing programs have the
potential to lead to diversion impacts, as drivers shift from the freeway network to the
arterials to avoid charges. Spillover/cut through traffic caused by a pricing program can
exacerbate traffic safety concerns along other streets. Project designers should carefully
consider the wide distribution of diversion impacts that may result from the program,
particularly on regional high injury corridors. Implementing agencies can also look to
high injury local streets and intersections for which to prioritize safety improvements. It
is important for pricing programs to mitigate the negative impacts of diversion. Diversion
onto nearby streets could be addressed with safety or transit improvements, for example.
If pricing programs result in successful mode shift to transit, diversion impacts can be
lessened.
To implement Pricing Policy 4, agencies developing pricing programs or projects should take the
following actions:
1. Collaborate with relevant state, regional, and local agencies and communities when
identifying diversion impacts and selecting mitigations associated with pricing.
2. Use a data-driven approach to define and identify diversion impacts both during and
after implementation of pricing programs and projects. Following implementation
monitor with real-time data.
3. Evaluate localized impacts of diversion including factors such as VMT per capita, VMT
per capita in defined equity areas, noise, economic impacts to businesses, and
localized emissions, water quality, air quality, and the completeness of safety
infrastructure and non-vehicular modal networks. This should include specific
evaluation of diversion impacts in communities with people with low-income and
people of color, and/or in Equity Focus Areas.
4. Context-specific monitoring and evaluation programs should be conducted by
implementing agencies in coordination with partner agencies and be on-going and
transparent. Establish feedback mechanisms and a communication plan in advance for
the community and decision makers and ensure reinvestment is still applicable when
impacted area changes.

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5. Adjust mitigation strategies based on monitoring and evaluation findings. Areas
impacted may change as the pricing program is implemented and diversion mitigation
strategies are put into place.
6. Reinvest a portion of revenues into areas affected by diversion caused by pricing
programs and projects consistent with Federal and State law.

Pricing Policy 5. Reduce greenhouse gas emissions and vehicle miles travelled per capita
while increasing access to low-carbon travel options.

The Metro Regional Congestion Pricing Study found that pricing has the potential to help
the great Portland region reduce greenhouse gas emissions and achieve Metro’s climate
goals. All of the scenarios tested in the study showed reductions in greenhouse gas
emissions through reducing overall VMT per capita. Pricing policies were found to be
effective in encouraging drivers to change their travel behavior such as using more
sustainable travel modes like transit, walking, or biking. These changes in behavior are
key to reducing greenhouse gas emissions in the region.

Pricing programs should be designed to meet climate goals without adversely impacting
safety or equity. Climate improvements can be measured by percent reduction of
greenhouse gasses per capita, percent reduction of criteria pollutants and transportation
air toxics, percent reduction of vehicle miles traveled per capita, and shifts in travel
behavior. Implementing agencies should consider the geographic and demographic
distribution of targeted climate improvements, particularly taking into consideration the
health impacts of pollutants and transportation air toxics that disproportionately harm
Black, Indigenous, and other people of color and low-income communities.
To implement Pricing Policy 5, agencies developing pricing programs or projects should take the
following actions:
1. Identify localized air pollutants and greenhouse gas emission impacts due to pricing
and identify strategies for mitigation.
2. Set rates for pricing at a level that will reduce greenhouse gas emissions and improve
air quality by managing congestion and reducing overall VMT per capita on the priced
system and in areas affected by diversion. ORS 383 delegates authority to the Oregon
Transportation Commission (OTC) to set pricing rates for state highways in
accordance with state legislation.
3. Reinvest a portion of revenues from pricing into modal alternatives both on and off
the priced facility consistent with Federal and State law, to reduce overall emissions
by encouraging mode shift and VMT per capita reduction, including transit
improvements as well as bicycle and pedestrian improvements and improvements to
local circulation.

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4. Develop and implement pricing so that it addresses and supports the Climate Smart
Strategy and regional climate policies, including through the Congestion Management
Process (CMP).

Pricing Policy 6. Coordinate technologies and pricing programs and projects to make pricing
a low-barrier, seamless experience for everyone who uses the transportation system and to
reduce administrative burdens.

The Metro Regional Congestion Pricing Study describes a wide range of technologies
available that can be used in pricing programs to create a seamless and low-barrier
experience. Programs can use electronic toll collection systems, mobile applications,
short-range communication systems embedded in new vehicles, OReGO technologies that
wirelessly connect to a vehicle’s diagnostic ports, or online portals for self-reporting. The
type of technology used will vary depending on the type of pricing program. Metro’s study
recommends a pilot phase for the region to trial one or more technologies before
implementing a region-wide system.

There are several considerations to be taken when using technology in the

implementation of a pricing program. First, emerging technologies can be more expensive
than existing ones, yet existing technologies run the risk of becoming obsolete sooner.
Second, some technologies (such as tolling systems) require a physical footprint that can
take up limited physical space and create a visual aesthetic impact that may need design
commission approval in some parts of the city. Further, technologies such as mobile apps
or online portals that require users to take an action will likely be less accurate and
reliable than automatic technologies. These technologies may also unfairly burden low-
income travelers that do not have access to a cell phone, computer, internet, or banking
system. Technologies that enhance user experience while limiting barriers to use should
be prioritized. Project designers should also consider a program’s compatibility with
existing pricing technologies used in the region (such as the Hop regional transit fare
program or existing parking payment systems).
To implement Policy 6, agencies developing pricing programs or projects should take the following
actions:
1. Coordinate technologies and user-friendly designs across pricing programs and
projects to reduce burdens on the user and manage the system efficiently, including
setting rates, identifying tolling technology and payment systems, and establishing
discounts and exemptions.
2. Create varied and accessible means of payment and enrollment, including options for
people without access to the internet or banking services.
3. Consider the upfront costs of technology investment balanced with long-term
operational and replacement costs compared with expected revenue generation.

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3.2.6 Mobility Policies

Within the greater Portland region, the State

of Oregon and Metro have a shared goal of
providing mobility such that people and
businesses can safely, affordably, and
efficiently reach the goods, services, places,
and opportunities they need to thrive by a
variety of seamless and well-connected travel
options and services that are welcoming,
convenient, comfortable, and reliable.

[Link] Mobility policy outcomes and policies

The mobility policy is intended to achieve the

following outcomes identified by
policymakers and stakeholders as critical to
guide how transportation agencies plan for, manage, and operate the transportation
system.
Policy outcomes
• Equity – Black, Indigenous and people of color (BIPOC) community members, federally
recognized tribes, and people with low incomes, youth, older adults, people living with
disabilities and other marginalized and underserved communities experience
equitable mobility. BIPOC, federally recognized tribes, and other marginalized
communities have often experienced disproportionately negative impacts from
transportation infrastructure as well as disparities in access to safe multimodal travel
options. Addressing these disparities is a priority for ODOT and Metro.

The regional transportation system should support access to opportunities for everyone,
not just people in motor vehicles. Equity can be enhanced through providing strong
multimodal networks with priority provided to improvements benefitting marginalized
and underserved communities.
• Efficiency - Land use and transportation decisions and investments contribute
to more efficient use of the transportation system meaning that trips are shorter
and can be completed by more travel modes, reducing space and resources
dedicated to transportation. Efficiency in this context means that transportation
requires less space and resources. Efficiency can be improved by shortening travel
distances between destinations. Shorter travel distances to destinations enhance the
viability of using other and more efficient modes of transportation than the
automobile and preserves roadway capacity for transit, freight, and goods movement

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 by truck and for longer trips. Efficiently using land and planning for key destinations
in proximity to the where people live and work, contributes to shorter trip lengths.
The transportation efficiency of existing and proposed land use patterns and
transportation systems can be measured by looking at “vehicle miles traveled (VMT)
per capita” for home-based trips or “VMT per employee” for commute trips to/from
work of an area.
• Access and Options -People and businesses can conveniently and affordably
reach the goods, services, places, and opportunities they need to thrive. People
and businesses can choose from a variety of seamless and well-connected travel
modes and services that easily get them where they need to go. The viability of
trips made by modes other than automobiles can be increased by investing in a
connected, multimodal transportation system. Multimodal systems serve all people,
not just those who have access to vehicles or the ability to drive them, and provide
more route choices, increase safety and efficiency, and increase reliability. Closing
gaps in networks, particularly pedestrian and bicycle networks, and closing special
and temporal gaps in transit networks, can change travel preferences, reducing
VMT/capita. Progress towards well connected, multimodal networks can be measured
by mode with “system completeness.”
• Safety - People are able to travel safely and comfortably and feel welcome.
Unsafe transportation facilities can result in injury and loss of life and place a strain on
emergency responders. Both unsafe conditions and perceived unsafe conditions can
impact travel behavior, causing users to choose different routes or modes. Prioritizing
investments that reduce the likelihood of future crashes and that improve safety and
comfort for all users will increase mode choices and improve reliability. System
completeness by travel mode is useful in identifying needs and investments that could
enhance safety and comfort.
• Reliability - People and businesses can count on the transportation system to
travel where they need to go reliably and in a reasonable amount of time. In a
reliable transportation system, all users, including people in automobiles and using
transit, can reasonably predict travel time to their destinations. Reliability is impacted
by travel conditions, safety, street connectivity, congestion, and availability of travel
options. Investments in safety, street connectivity, transit, transportation system
management and operations (TSMO), and demand management can yield significant
benefits for managing congestion and increasing reliability for all travelers. System
completeness can be used as a measure of the availability of reliable travel options,
including walking and biking. Average travel speed can be used as a proxy measure of
reliability to forecast locations that may be unreliable, including looking at the number
of hours a facility fall below a specified threshold and the percentage of a facility that
falls below that speed threshold for multiple hours per day. Average travel speed can
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 also be used to look at total travel time between origin-destination pairs and identify
bottlenecks that are most impacting reliability on key travel routes for vehicle modes,
including freight and transit.
For Throughways, the essential function is throughput and mobility for motor vehicle
travel, including transit and freight vehicles, to maximize movement of people and
goods. Throughways serve interregional and interstate trips and travel times are an
important factor in people and businesses being able to make long-distance trips to
and through the region and access destinations of regional and statewide significance
in a reasonable and reliable amount of time.
For most Arterials, depending upon the street design classification and freight
network classification, the essential functions are transit, bicycle and pedestrian travel
and access, while balancing motor vehicle travel and the many other functions of
arterials in intensely developed areas. Transit reliability on arterials can be improved
with exclusive bus lanes, signal priority and other TSMO strategies. Improving
automobile reliability through additional roadway capacity should follow the region’s
congestion management process and not come at the expense of non-motorized
modes and achieving system completeness consistent with modal or design
classifications in the Regional Transportation Plan (RTP) or achieving the VMT/capita
target for the region or the jurisdiction.
Within the greater Portland region, the State of Oregon and Metro have a shared goal of
providing mobility such that people and businesses can safely, affordably, and efficiently
reach the goods, services, places, and opportunities they need to thrive by a variety of
seamless and well-connected travel options and services that are welcoming, convenient,
comfortable, and reliable.
The following policies aim to achieve these outcomes.

Mobility Policy 1 Ensure that land use decisions and investments in the transportation
system enhance efficiency in how people and goods travel to where
they need to go.

Mobility Policy 2 Provide people and businesses a variety of seamless and well-
connected travel modes and services that increase connectivity, travel
choices and access to low carbon transportation options so that
people and businesses can conveniently and affordably reach the
goods, services, places, and opportunities they need to thrive.

Mobility Policy 3 Create a reliable transportation system that people, and businesses
can count on to reach destinations in a predictable and reasonable
amount of time.

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Mobility Policy 4 Prioritize the safety and comfort of travelers by all travel modes when
planning and implementing mobility solutions.

Mobility Policy 5 Prioritize investments that ensure that Black, Indigenous and people
of color (BIPOC) community members, federally recognized tribes, and
people with low incomes, youth, older adults, people living with
disabilities and other marginalized and underserved populations have
equitable access to safe, reliable, affordable, and convenient travel
choices that connect to key destinations.

Mobility Policy 6 Use mobility performance targets and thresholds for system planning
and evaluating the impacts of plan amendments including: Vehicle
Miles Travelled (VMT) per capita for home-based trips,
VMT/employee for commute trips to/from work, system
completeness for all travel modes, and travel speed reliability on the
throughways.

The Regional Mobility Policies apply to:

• the state highway system within the greater Portland region for:
o identifying state highway mobility needs and solutions during system planning
and plan implementation; and
o evaluating the impacts on state highways of amendments to transportation
system plans, acknowledged comprehensive plans and land use regulations
pursuant to the Transportation Planning Rule (OAR 660-12-0060).
• throughways and arterials designated in the Regional Transportation Plan (RTP),
which include state and local jurisdiction facilities, for identifying mobility needs and
solutions during system planning and plan implementation.

Under this policy, Oregon Highway Plan volume-to-capacity ratio targets still guide
operations decisions such as managing access and traffic control systems and can be used
to identify intersection improvements that would help reduce delay, improve the corridor
average travel speed, and improve safety. Local jurisdiction standards for their facilities
still apply for evaluating impacts of amendments to transportation system plans,
acknowledged comprehensive plans and land use regulations pursuant to the
Transportation Planning Rule (OAR 660-12-0060) and guiding operations decisions.

Three performance targets and thresholds as described in Table 3-5 will be used to
assess the adequacy of mobility in the Portland metropolitan area for the regional
networks based on the expectations for each facility type, location, and function. These
measures will be the initial tools to identify mobility gaps and deficiencies (needs) and

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consider solutions to address identified mobility needs. The subsequent actions describe
how to apply these measures to system planning consistent with OAR 660-012, Sections
3.08.220 and 3.08.510 of the Regional Transportation Functional Plan (RTFP) and OHP
Policy 1.G and assessing plan amendment consistent with OAR 660-012-0060.
Table 3-5 Mobility performance targets and thresholds
Measure Application Targets and Thresholds
VMT/Capita for System Planning OAR 660 Division 44 (Metropolitan Greenhouse Gas
home-based trips (GHG) Emissions Reduction rule)) and OAR 660
Division 12 set VMT/capita reduction targets with
and which the 2023 RTP update and local TSPs will need
to comply. The VMT/capita targets are: 20%
VMT/Employee for reduction by 2035, 25% reduction by 2040, 30%
commute trips reduction by 2045 and 35% reduction by 2050 (from
to/from work 2005 levels). (a)

The 2023 RTP and TSPs that meet this regional target
will establish 2045 baseline VMT/capita and
VMT/employee. All subsequent applications of this
policy shall not increase VMT/capita or
VMT/employee above the future baseline.
Plan Amendments (b) The plan amendment will have equal to or lower
forecast VMT/capita for home-based trips and equal
to or lower forecast VMT/employee for commute
trips to/from work than the District target. (c)
System System Planning Complete networks and systems for walking, biking,
Completeness transit, vehicles, freight, and implement strategies for
managing the transportation system and travel
demand (See Table 3 for guidance and Table 4 for
completeness elements by facility type). 12 (The
planned system, Strategic and Financially
Constrained, will be defined in local jurisdiction TSPs
and may not achieve completeness for all modes to
target levels but the local jurisdiction TSP should
identify future intent for all facilities given constraints
and tradeoffs.)
Plan Amendments 100% of planned system
Or
Reduced gaps and deficiencies (See Table 5 13 for
guidance)

12
See Tables on pages 10-11 of the Memo “Draft Regional Mobility Policy for the 2023 Regional Transportation
Plan (10/28/22)” [Link]
[Link] Tables will be added to Appendix V in the final RTP
13
See Table on page 19 of the Memo “Draft Regional Mobility Policy for the 2023 Regional Transportation Plan
(10/28/22)” [Link]
[Link] Tables will be added to Appendix V in the final RTP

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Measure Application Targets and Thresholds
Throughway Travel System Planning (d) RTP Motor Vehicle Thresholds (f)
Speed (Reliability) Designation
Throughways with Average speed not
controlled-access (e) below 35 mph for
I-205 more than 4 hours per
I-84 day
I-5
OR 217
US 26 (west of I-405)
I-405
OR 213 from
Beavercreek Road to
I-205
OR 212-Sunrise
Expressway
Throughways with Threshold
traffic signals – Non- Average speed not
Expressways (e) below 20 mph for
OR 99W west of more than 4 hours per
Sherwood day
OR 99E Portland to OR
212
OR 99E from south of
Oregon City
OR 213 south of
Beavercreek Rd
US 30
OR 47
OR 224
OR 212
US 26 south of OR 212
Plan Amendments Same as system Same as system
planning planning
Table notes:
(a) Meeting
these targets sets the region on a trajectory to meet state goals adopted in 2007 to reduce total
GHG emissions from all sources to 75% below 1990 levels by 2050.
Plan amendments that meet this target shall be found to not have a significant impact pursuant to the
(b)

Transportation Planning Rule (OAR 660-12-0060).

(c) Metrowill develop maps and/or tables and analyses of how VMT per capita and VMT and per employee
and how it is distributed throughout the region. Metro will establish VMT/capita “Districts” that identify
TAZ groupings (subareas) with similar land use characteristics and forecast VMT/Capita. A spreadsheet or
similar tool will be developed to help assess potential changes to VMT/capita and VMT/employee and
potential mitigations to minimize the need for application of the regional travel demand model for all plan
amendments.
(d) Addressing motor vehicle congestion through additional throughway capacity should follow the RTP
congestion management process, Sections 3.08.220 and 3.08.510 of the Regional Transportation Functional
Plan and OHP Policy 1G, and should not come at the expense of achieving system completeness for non-
motorized modes consistent with regional modal or design classifications or achieving the VMT/capita
target for the region or jurisdiction.

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(e) Throughways are designated in the Regional Transportation Plan and generally correspond to
Expressways designated in the Oregon Highway Plan. Some throughways designated in the RTP are not
Expressways in the Oregon Highway Plan but serve an important statewide function.
(f) Thethresholds are used to identify areas of poor reliability where due to traffic volumes, average travel
speeds drop below specified speed and duration thresholds. It will be used as a threshold to identify needs
(deficiencies). It will not be applied as a standard that creates conflict with meeting OAR 660 Division 44
VMT per capita reduction targets. Solutions to address identified needs should follow the RTP congestion
management process, Sections 3.08.220 and 3.08.510 of the Regional Transportation Functional Plan and
OHP Policy 1G, and should not come at the expense of achieving system completeness for non-motorized
modes consistent with regional modal or design classifications or achieving the VMT/capita target for the
region or jurisdiction.

How do the measures work together?

Vehicle miles traveled (VMT)/capita will be a controlling measure in both system

planning and plan amendments to ensure that the planned transportation system and
changes to the system support reduced VMT/capita by providing travel options that are
complete and connected and that changes to land use reduce the overall need to drive
from a regional perspective and are supportive of travel options.
• For system planning, the final planned system must support OAR 660 Division 44
(Metropolitan Greenhouse Gas (GHG) Emissions Reduction rule) and OAR 660
Division 12 VMT reduction targets.
• For plan amendments, VMT/capita will be used to determine whether the proposed
plan amendment has a significant impact on regional VMT/capita that needs to be
mitigated or not.
System completeness and travel speed reliability on throughways are secondary
measures that will be used to identify needs and inform the development of the planned
system. The policy requires that TSPs define the planned system for each mode using a
variety of guidance documents. Additional RTP and state policies also guide the
development of individual modal systems. It is important to note that the Regional
Mobility Policy is one of many policies that inform the development of the Regional
Transportation Plan and local transportation system plans in the Portland region.
The regional and local “planned” system may not achieve completeness for all modes but
should identify future needs and expectations for all facilities given constraints and
tradeoffs. Similarly, reliability on throughways will inform state and regional needs of the
throughway system as defined in in Table 3-5. Identifying solutions for locations that do
not meet the throughways travel speed reliability threshold shall follow the RTP

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congestion management process 14 and OHP Policy 1G 15, and should not come at the
expense of achieving the VMT/capita target.

[Link] Mobility policy system planning actions

A planned system that can be used to review system completeness is the primary
outcome of system planning. VMT/capita and travel speed on throughways are applied to
system planning to support the identification of the planned system and transportation
needs. The Regional Mobility Policy does not dictate how Metro or local agencies conduct
system planning. It is one tool to be used to identify needs and define the planned system.
System planning includes updates to long-range transportation plans, including the
Regional Transportation Plan and locally adopted transportation system plans. System
planning also includes planning for the transportation system in smaller geographies
through ODOT facility plans, corridor refinement plans as defined in the Regional
Transportation Plan (RTP) and OAR 660-012, and area plans, including concept plans for
designated urban reserve areas. The following actions describe how each of the
performance targets shall be used in tandem in system planning, which is supported by
the flow chart in Figure 3-8.

1. Division 44 GHG Emissions Reduction Rule) and OAR 660 Division 12

(Transportation Planning Rule) set a VMT/capita reduction target for the Portland
metropolitan area. 16 The 2023 RTP will identify the strategies needed to achieve
this target and result in 2045 baseline VMT/capita for the region. This future
baseline shall be used to estimate future VMT/capita for home-based trips and
VMT/employee for commute trips to/from work at the TAZ level. The TAZ data
shall be aggregated to develop “Districts” 17with similar land use and VMT
characteristics by Metro through the 2023 RTP update and implementation
process. The percent change in VMT/capita for the region must meet the reduction

14
Section 3.3.4 of the RTP states that “The RTP calls for implementing system and demand management strategies
and other strategies prior to building new motor vehicle capacity, consistent with the Federal Congestion
Management Process (CMP) and Oregon Transportation Plan policies (including Oregon Highway Plan Policy 1G).
Appendix L to the RTP provides more detailed information. Sections 3.08.220 and 3.08.510 of the Regional
Transportation Functional Plan (RTFP) further direct how Transportation System Plans implement the CMP.
15
Policy 1G (Major Improvements) has the purpose of maintaining highway performance and improving highway
safety by improving system efficiency and management before adding capacity.
16
The Division 44 VMT reduction targets cannot currently be measured using Metro’s Regional Travel Demand
Model (RTDM); however, baselines for VMT/capita for home-based trips and VMT/employee for commute trips
to/from work can be established from the RTDM for the RTP scenario that meet the Division 44 VMT reduction
targets as measured via a different tool.
17
VMT/capita “Districts” will be established that identify TAZ groupings (subareas) with similar forecast
VMT/capita, considering use of RTP mobility corridor geographies as a starting point.

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 target in Division 44 (GHG Emissions Reduction Rule), but the percent change in
VMT/capita for each district will vary.

2. For system planning at the sub-regional, local jurisdiction (TSPs), or subarea

levels, VMT/capita for home-based trips and VMT/employee for commute trips
to/from work shall be measured for the “Districts” covering the plan area to
ensure that land use and transportation plan changes are working in tandem to
achieve the region’s VMT/capita reduction target, resulting in reduced need to
drive, improved viability of using other and more efficient modes of transportation
than the automobile, and preserving roadway capacity for transit, freight and
movement of goods and services. At the first major TSP update after this policy is
implemented, system plans shall demonstrate that the planned transportation
system achieves the regional OAR 660 Division 44 (GHG Emissions Reduction
Rule) and OAR 660 Division 12 (Transportation Planning Rule) targets and that
future system plan updates maintain or reduce aggregate VMT/capita for home-
based trips and VMT/employee for commute trips to/from work for the “Districts”
in the plan area compared to the 2045 baseline set in the 2023 RTP. Projections of
VMT/capita must incorporate the best available science on latent and induced
travel of additional roadway capacity consistent with OAR 660-012-0160. If a
TSP’s financially constrained list does not include any projects requiring review in
OAR 660-012-0830, VMT per capita analysis work in OAR 660-012-0160(2)-(4) is
not required.

3. System completeness definitions in guidance documents shall be used to identify

needs and ensure that the planned transportation system is increasing
connectivity and improving safety of the multimodal network. The planned system
shall be established in local transportation system plans consistent with the RTP
and Regional Transportation Functional Plan (RTFP) for each facility and will vary
based on the modal functional classification and design classification. Table 3 18
provides guidance for defining the planned system and Table 4 19 identifies the
elements that must be identified for each facility or service type.

4. Reliability for throughways based on average travel speed thresholds in Table 3-5
shall be used to assess performance of throughway facilities within the system

18
See pg. 10 of the Memo “Draft Regional Mobility Policy for the 2023 Regional Transportation Plan (10/28/22)”
[Link]
[Link] Tables will be added to Appendix V in the final RTP
19
See pg. 11 of the Memo “Draft Regional Mobility Policy for the 2023 Regional Transportation Plan (10/28/22)”
[Link]
[Link] Tables will be added to Appendix V in the final RTP

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 planning study area for safe, efficient, and reliable speeds. Thresholds reflect a
minimum average travel speed that shall be maintained for a specific number of
hours per day, recognizing that the threshold average speed is not likely to be met
during a number of peak hours, as described in Table 3-5. The percentage of the
throughway system meeting the target may also be considered. These thresholds
shall inform identification of transportation needs and consideration of system and
demand management strategies and other strategies 20 but shall not be used as
standards at the expense of non-motorized modes and achieving system
completeness for other modes consistent with regional modal or design
classifications or achieving the VMT/capita target for the region or jurisdiction.
Analysis segmentation of facilities within the study area will be determined based
on the analysis software or modeling tool utilized. 21 Projections of VMT/capita
must incorporate the best available science on latent and induced travel of
additional roadway capacity.

5. Interchanges shall be managed to maintain safe, efficient, and reliable operation of

the mainline for longer trips of regional or statewide purpose through the
interchange area. The main objective is to avoid the formation of traffic queues on
off-ramps which back up into the portions of the ramps needed for safe
deceleration from mainline speeds or onto the mainline itself. This is a significant
traffic safety and operational concern as queues impact mainline operations and
crashes affecting reliability. Deceleration space for vehicles exiting throughway
mainlines can be improved by managing throughways for longer trips resulting in
reducing off-ramp traffic volumes and by increasing capacity at the off-ramp
terminal. Throughway off-ramp terminal intersection and deceleration needs shall
be evaluated through system plans such as Interchange Area Management Plans,
Corridor Plans, and Sub-area Plans.

6. In system plans, when identifying transportation needs and prioritizing

investments and strategies, projects that create greater equity and reduce
disparities between “Equity Focus Areas" and “Non-Equity Focus Areas” shall be
prioritized. This action aims to improve equitable outcomes by burdening
underserved populations less than and benefiting underserved populations as
much or more as the study area population as a whole. Because the Equity Focus
Areas as defined by the RTP are based on a regional average comparison, local

20
The RTP system sizing policies, regional congestion management process and OHP Policy 1F will be followed to
determine mitigations that support meeting the throughway travel speed threshold.
21
Supporting documentation will be needed as part of implementation of the policy to define the segmentation
methodologies based on analysis options.

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 governments shall conduct a more specific equity analysis at the local TSP scale
consistent with OAR 660-012-0135.

Figure 3-8 System Planning Process Utilizing the Mobility Policy Measures

[Link] Mobility policy plan amendment evaluation actions

All three of the mobility policy measures are applied to the evaluation of plan
amendments. The following actions describe how each of the mobility targets and
thresholds shall be used in tandem in evaluating plan amendments consistent with the
Transportation Planning Rule (OAR 660-012-0060) and is supported by the flowchart in
Figure 3-8.

1. Comprehensive plan amendments that do not surpass the trip generation

thresholds in the Oregon Highway Plan Policy 1F will be found to have no

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 significant impact and are not required to further evaluate VMT/capita, hours of
congestion travel speed on Throughways, or system completeness.

2. In a jurisdiction with a TSP that has demonstrated compliance with achieving the
region’s Division 44 and Division 12 VMT reduction targets, comprehensive plan
amendments that are forecast to maintain or lower VMT/capita for home-based
trips and VMT/employee for commute trips to/from work compared to their 2045
baseline that achieve Division 44 targets, shall be found to have no significant
impact consistent with the Transportation Planning Rule (OAR 660-12-0060)

3. Comprehensive plan amendments that have a significant impact because they a)

increase VMT/capita for home-based trips or VMT/employee for commute trips
to/from work or b) the jurisdiction has not demonstrated compliance with OAR
660 Division 44 and Division 12 VMT reduction targets shall mitigate that impact
by adjusting their land use plan, supporting VMT/capita reduction through
enhancing non-vehicular modes beyond what’s in the financially constrained
transportation system plan, and/or committing to transportation demand
management. Enhancing non-vehicular modes means increasing system
completeness for non-vehicular modes within the impact area of the plan
amendment for those modes. Within the impact area, the system gaps will be
identified based on the planned system in the TSP.

4. Large scale, typically legislative plan amendments will be obligated to develop a

funding plan that will address the system gaps and bring additional projects that
support VMT/capita reduction into the financially constrained transportation
system plan and that help the district meet their VMT/capita target or mitigate the
safety impacts of additional vehicle trips. In addition to addressing system
completeness, a large plan amendment that is found have a significant impact on
VMT/capita that cannot be mitigated will be required to review the impact of the
plan amendment on meeting the travel speed on Throughways threshold and
mitigate the impact. Addressing the impact of the plan amendment on
throughways shall follow the RTP congestion management process, Sections
3.08.220 and 3.08.510 of the Regional Transportation Functional Plan and OHP
Policy 1G and shall not come at the expense of achieving the VMT/capita target for
the region.

5. Small scale, typically quasi-judicial plan amendments will need to demonstrate

their proportionate impact on increased VMT/capita in the district and agree to
conditions on the plan amendment or future conditions of development approval
consistent with the local jurisdiction development code and project funding
mechanisms to support reduced VMT/capita such as land use, transportation

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 demand management, and/or off-site mitigations to support VMT reduction or
mitigate safety impacts of additional trips.

6. System completeness assessment of comprehensive plan amendments shall

identify the needs to meet the planned system for each mode, as established in
regional and/or local system plans. For each mode, the completeness impact area
will be defined based on routing from the comprehensive plan amendment site for
the specified distances in Table 5 22. Table 5 23 provides guidance for identifying
the needs within each modal completeness impact area. For the comprehensive
plan amendment, a proportional share of additional projects in the unconstrained
transportation system plan, not included financially constrained transportation
system plan, will be established based on additional daily trips for the plan
amendment for both multi-modal trips as well as the vehicular trips for which the
increased VMT/capita is being mitigated, as described in Figure 3-9.

7. Comprehensive plan amendments that demonstrate either of the following for

analysis segments within the vehicular impact area shall be found to require
mitigation, and a proportional share of the identified needs will be established for
the comprehensive plan amendment based on additional daily trips:

a. Degrades the travel speed of an existing or planned throughway such that it

would not meet the performance target identified Table 3-5; or

b. Degrades the travel speed of an existing or planned throughway that is

otherwise projected to not meet the performance standards identified in Table
3-5.

8. Interchanges within the vehicular impact area shall be assessed for off-ramp
queuing to maintain safe, efficient, and reliable operation of the mainline for longer
trips of regional or statewide purpose through the interchange area under the
forecast comprehensive plan amendment.

22
See pg. 19 of the Memo “Draft Regional Mobility Policy for the 2023 Regional Transportation Plan (10/28/22)”
[Link]
[Link] Tables will be added to Appendix V in the final RTP
23
See pg. 19 of the Memo “Draft Regional Mobility Policy for the 2023 Regional Transportation Plan (10/28/22)”
[Link]
[Link] Tables will be added to Appendix V in the final RTP

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Figure 3-9 Guidance for Assessing Plan Amendment Impacts

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Figure 3-10 Plan Amendment Process Utilizing the Mobility Policy Measures

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3.3 REGIONAL NETWORK VISIONS, CONCEPTS AND POLICIES
This section describes a network vision, concept and supporting policies for each
component of the regional transportation system. The network vision, concepts and
policies represent a complete urban transportation system that meets the plan goals and
supports local aspirations for growth.

Rendering of a Regional Street showing a four-lane street with a planted median, crosswalks, and buildings. One
lane in each direction is a bus only lane. There is a bus and four cars. A painted green bikeway and sidewalk are
separated from the roadway by a planted median. People are walking and crossing the street. Source: Metro
Designing Livable Streets and Trails Guide

The network visions, concepts and policies provide define a seamless and well-connected
regional system of regional throughways and arterial streets, freight networks, transit
networks and services and bicycle and pedestrian facilities. The network policies
emphasize safety, access, mobility and reliability for people and goods and recognize the
community-building and placemaking role of transportation. The network visions,
concepts and supporting policies will guide the development, design, and management of
different networks of the regional transportation system. The transportation system
components are shown in Figure 3-11.

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Figure 3-11 Regional transportation system components

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3.3.1 Regional mobility corridor concept

The regional mobility corridor concept envisions regional travel corridors defined by a
central throughway and high capacity transit well supported by a network of arterial
streets, frequent bus routes, freight and passenger rail and bicycle parkways to provide
for regional, statewide, and interstate travel. The function of this system of integrated
transportation corridors is metropolitan mobility – moving people and goods between
different parts of the region and connecting the region with the rest of the state and
beyond. Mobility corridors also have a significant influence on the development and
function of the land uses they serve. Mobility corridors are defined by the major centers of
the 2040 Growth Concept. The regional mobility corridor concept calls for the
consideration of parallel and interconnected facilities, different travel modes, and land
use when identifying needs and solutions to improve mobility within a corridor. The
concept of a regional mobility corridor is shown in Figure 3-12.

Since the 1980s, regional mobility corridors have had throughway travel supplemented
by high capacity transit service that provides an important passenger alternative. Parallel
arterial streets, heavy rail, bus service, bicycle parkways and pedestrian/bicycle
connections to transit also provide additional capacity in the regional mobility corridors.
The full array of regional mobility corridor facilities should be considered in conjunction
with the parallel throughways for system evaluation and monitoring, system and demand
management and phasing of physical investments in the individual facilities. Bicycle and
pedestrian travel and access to transit are also important as we plan and invest in
regional throughways and arterial streets. New throughway and arterial facilities, such as
freeway interchanges or widened arterial streets, should be designed, and constructed in
such a manner as to support bicycling, walking and access to transit.

The Mobility Corridor Strategies provided in the Appendix provides a summary of the 24
corridors, describing facilities, functions, land uses, and documenting transportation
needs and strategies for addressing them. Updates to these strategies will be informed by
the Regional Mobility Policy update described in Chapter 8.

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Figure 3-12 Regional mobility corridor concept

Note: Idealized concept for illustrative purposes showing recommended range of system analysis for the
evaluation, monitoring, management, and phasing of investments to throughways, arterial streets and transit
service in the broader corridor. The illustration is modeled after the Banfield corridor that links the Portland
central city to the Gateway regional center.

Figure 3-13 shows the general location of mobility corridors in the region.
Figure 3-13 Mobility corridors in the Portland metropolitan region

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3.3.2 Regional Design and Placemaking Vision and Policies

Over the next several decades, the challenges faced by communities in greater Portland
and the burdens placed upon the transportation network will multiply in number and
complexity. Greenhouse gas emissions from motor vehicles and serious traffic crashes are
two of the most pressing transportation issues; addressing them will require a
transportation system designed to serve multiple travel modes, especially public transit,
walking, and bicycling. Additionally, streets and trails must function not only as corridors
for moving people, goods, and services, but also as stormwater management facilities,
community gathering spots and public spaces to enhance community livability.

The regional transportation system design classifications and policies in this section
address federal, state, and regional transportation planning mandates and support
implementation of the 2040 Growth Concept.
Figure 3-14 Metro’s Designing Livable Streets and Trails Guide 24

Metro’s Designing Livable Streets and Trails Guide provides design guidance depending
on the intended functions of the arterial or throughway, the land uses the facility serves

24
Metro’s Designing Livable Streets and Trails Guide complements existing national, state and local requirements
and guidelines, and its recommendations are allowable under national guidance, including guidelines developed
by the American Association of State Highway and Transportation Officials, the Federal Highway Administration
and the National Association of City Transportation Officials. The Designing Livable Streets and Trails Guide has
been developed based on current design guidance, case studies, best practices for urban environments, research
and evaluation of existing designs, and professional review and input. It integrates design guidance for regional
streets, regional trails, stormwater management and green street treatments into one guide to encourage a
holistic and comprehensive approach to designing a complete transportation system.

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and adopted policy. In the design guidance, consideration is given to various arterial
designs, designs for freight, trails, pedestrians, bicyclists and transit and the link between
street design and stormwater management. 25 Design decisions, especially trade-offs in
situations of limited road right-of-way, should use performance-based design and
flexibility in design to achieve desired outcomes.

The purpose of the Guide is to support implementation of the 2040 Growth Concept and
the Regional Transportation Plan. Along with other local and regional plans and policies,
this Guide is a resource for the agencies responsible for designing, constructing, and
maintaining the region’s transportation system. Metro intends the design guidance to
assist in designing new and reconstructed streets and trails but may also be applied to
maintenance projects that preserve and extend the service life of existing streets and
structures when minor retrofits are needed.

3.3.1 Design and complete streets policies

Policy 1 Design the transportation system to implement the planned land uses and
regional urban form envisioned in the 2040 Growth Concept.

Policy 2 Design a well-connected transportation system that serves all modes of

travel.

Policy 3 Use regional street design classifications to guide development of streets that
balance the needs of all users and functions of streets according to planned
land use and desired outcomes.

Policy 4 Use transportation network and street design to help achieve regional goals
and desired outcomes, including environmental and human health, climate
action and resilience, a safe system, equitable transportation, mobility
options, vibrant communities, and a thriving economy.

Policy 5 Avoid, minimize, and mitigate environmental impacts of the transportation

system using Green Infrastructure design, street trees, wildlife habitat or
waterway crossing improvements and other approaches.

Policy 6 Use a performance-based approach and decision-making framework to plan

and design transportation projects and networks.

25 Find regional design guidelines and other resources here: [Link]

partners/guides-and-tools/guidelines-designing-livable-streets-and-trails

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Design Policy 1. Design the transportation system to implement the planned land uses and
regional urban form envisioned in the 2040 Growth Concept.

The 2040 Growth Concept directs most new development to mixed-use centers, corridors,
and main streets. Realization of the Concept relies on a balanced transportation system
that adequately serves planned uses while reducing vehicle miles traveled. Regional
street design classifications support building and operating streets that are sensitive to
the adjacent land use context, the roadway’s functional classifications and the different
needs and abilities of people traveling.

Figure 3-15 illustrates how the design of transportation facilities should change in
response to planned and surrounding land use.
Figure 3-15 Land use and transportation transect

Graphic image of an illustrative road running through different types of land use. To view the full size illustration
see the Designing Livable Streets and Trails at [Link]
tools/guidelines-designing-livable-streets-and-trails

Design Policy 2. Design a well-connected transportation system that serves all modes of
travel.

Consistent with the mobility corridor concept, a well-connected network of complete

streets provides multiple and direct routes between destinations. Figure 3-16 illustrates
a well-connected street network.

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Figure 3-16 Street connectivity

Because walking and biking are easier on a connected street network, a connected street
network supports the 20-minute neighborhood concept, where all daily necessities are
within a 20-minute walk of bike ride. Even where less-connected street networks have
been established by jurisdictions, trails, paths, bridges, and midblock street crossings
increase connectivity for people walking and bicycling. Emergency response also benefits
from a well-connected street system.

Section [Link] of the regional motor vehicle network policies provides regional street
spacing standards. Environmental factors may impact street connectivity in some
locations. Outside of centers, agencies should design street networks around, rather than
through, environmentally sensitive lands and should mitigate impacts when they cannot
be avoided. Street networks should allow for the preservation of continuous natural areas
and parks.

Complete streets are transportation facilities that agencies plan, design, operate, and
maintain to enable safe, convenient, and comfortable travel and access for users of all
ages and abilities regardless of their mode of transportation. Complete Streets serve many
functions and allow for safe travel by those walking, bicycling, driving automobiles, riding
public transportation, or delivering goods. Figure 3-17 illustrates the multiple functions
that streets serve.

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Figure 3-17 Livable streets and trails functions

Graphic image of an illustrative street with call out boxes describing the different functions of the street. To view
the full size illustration see the Designing Livable Streets and Trails at [Link]
partners/guides-and-tools/guidelines-designing-livable-streets-and-trails

Design Policy 3. Use regional street design classifications to guide development of streets
that balance the needs of all users and functions of streets according to planned land use
and desired outcomes.

Regional street design classifications provide an overall approach to design regional

roadways based on its functional classification, the planned land use context, and
achieving desired outcomes and community needs.

Table 3-6 summarizes typical design elements, including the planned number of motor
vehicle travel lanes and target and design speed, for different travel modes for each of the
regional street design classifications and illustrates how street design corresponds to
2040 land use design types and motor vehicle functional classifications.

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Table 3-6 Planned regional transportation system and typical design components of regional
design classifications

To view the full size table see the Designing Livable Streets and Trails at [Link]
partners/guides-and-tools/guidelines-designing-livable-streets-and-trails

Regional design classifications apply to local transportation system plans throughout

greater Portland. Cities or counties may adopt the classifications into their plans or
provide a cross-reference if they use different terms. Regional street design classifications
are assigned to all throughways and major and minor arterials in the regional
transportation system as shown in Table 3-6 and Figure 3-20.

Regional street design concepts promote community livability and reliable travel by
balancing all modes of travel and addressing the function and character of adjacent land
uses. Linking land use and the physical design of transportation facilities is crucial to
achieving state goals to limit reliance on any one mode of travel and to encourage
increased walking, bicycling, carpooling, vanpooling and use of transit.

Freeways and highways

Freeways and highways connect major activity centers, including the central city, regional
centers, industrial and employment areas, and intermodal facilities such as the Port of
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Portland. Freeways and highways provide intercity, interregional, and interstate
connections. This design classification prioritizes long-distance and higher speed freight,
motor vehicle and transit mobility. Freeways are grade separated; highways have a mix of
grade-separated and at grade intersections. Freeways and highways cross all types of land
uses, and buildings are typically not oriented to these facilities.

Regional and community boulevards

Regional and community boulevards serve the multimodal travel needs of the region’s
most intensely developed and developing activity centers, including the central city,
regional centers, station communities, town centers and some main streets. Adjacent land
uses and buildings should orient directly to the boulevard with ground-floor commercial
activity, contributing to a pedestrian and bicycle-friendly environment. Buildings typically
have designs, such as a storefront or arcade, which provide transition space from the
street and support pedestrian access. Agencies design boulevards to prioritize pedestrian,
bicycle, and transit travel.

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Regional and community streets

Regional and community streets balance the multimodal travel and access needs of
corridors, neighborhoods, and some main streets, along with employment and industrial
areas. Regional and community streets can be located within residential neighborhoods
as well as more densely developed corridors and employment centers. Development can
be set back from the street. Regional and community streets can also serve as main
streets with buildings oriented toward them at major intersections and transit stops.

Figure 3-20 shows design classifications for arterials and throughways.

Design Policy 4. Use transportation network and street design to help achieve regional goals
and desired outcomes, including environmental and human health, climate action and
resilience, a safe system, equitable transportation, mobility options, vibrant communities,
and a thriving economy.

Transportation agencies can design facilities to achieve desired outcomes and support the
health, safety, and economic and environmental sustainability of communities in the
region. Practitioners refer to this approach as performance-based design. Table 3-7
illustrates how design characteristics of urban arterials can either promote or hinder
desired outcomes.

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Table 3-7 Design characteristics of healthy urban arterials 26
Health Promoting Design Unhealthy Design
Neighborhood asset for access and commerce Physical barrier that divides neighborhoods
Supports neighborhood social and cultural Exhibits neglect and physical decay
connections
Safe travel speeds for all users Traffic speeds too high to be safe for all users
Comfortable for all users to cross Difficult to cross because of design and traffic
Link within pedestrian and bicycle networks Barrier within pedestrian and bicycle networks
Designed to mitigate noise Source of noise
Designed to mitigate air pollution Near-roadway air pollution
Accessible to users of all abilities Inaccessible to users with disabilities
Supports green infrastructure systems Impervious paving materials, lack of shade
Contributes to revitalization without Location of residential and business gentrification
displacement
Design principles to achieve desired outcomes:
• Design with a safe system approach: Use the safe systems approach in street design,
managing speeds for safety, lowering speeds in areas where people are walking,
bicycling, and accessing transit and separating users. Separation means creating
physical barriers between people moving at different speeds. As speed differentials
increase, so should the level of separation. Medians, access management treatments,
protected bicycle lanes and other street design elements can minimize crashes.
• Design for safe speeds: Design streets to encourage safe speeds for all users – the
safe target speed. Evaluating minimum sight distance, horizontal curvature, vertical
curves, and other design factors is based on the design speed. To achieve a safe target
speed, the design speed should align with the target speed. Ultimately, posted speed
should also align. Transportation agencies can achieve a desired target speed by street
design elements. Wider, more open roadways encourage higher operating speeds.
Conversely, a roadside with street-facing buildings, wide, buffered sidewalks,
separated bikeways, on-street parking and street trees can lead to lower speeds.
• Design for all users: Design for people of all ages and abilities, as well as the design
vehicle for a specific facility. Before developing a design, practitioners should consider
each type of user and how they will navigate the street. Agencies should design streets
keeping the green transportation hierarchy in mind. The hierarchy prioritizes
functions for a typical street in this order: walking, bicycling, transit, freight, carshare/
taxi/commercial transport, and private automobiles. The selection of a design vehicle
is an essential part of developing street and intersection designs. The design vehicle is

26
Understanding and Improving Arterial Roads to Support Public Health and Transportation Goals, American
Journal of Public Health, August 2017.

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 the largest vehicle expected to use the street or intersection regularly. Because the
selection of a design vehicle influences street dimensions such as turning radii, which
in turn can impact safety and operating speeds, practitioners should choose the
smallest possible design vehicle. Occasional larger vehicles can still be accommodated
in the design by encroaching on opposing lanes or using multiple point turns.
Likewise, agencies can use design features such as speed cushions or truck aprons to
accommodate emergency vehicles and large trucks while providing speed
management treatments that reduce overall traffic speeds.
• Design for personal security and equity: Use design to create streets where people
of all races, genders, ages and abilities feel safe from crime and harassment. Because
street design has been used to oppress and criminalize Black communities,
communities must be engaged in the design process. Streets should be intuitive and
easy to use regardless of race, income, age, ability, cultural background, or language.
• Design to protect the environment: Use green infrastructure design to avoid,
minimize and mitigate the harmful environmental impacts of transportation facilities
and achieve a healthier, more resilient landscape.
• Design for the future: Factor in rapid technological change and innovation. Agencies
should consider allocating street space to the functions that matter most, and not
necessarily to the newest technology. Street designs should also be flexible enough to
support piloting new innovations.
• Design with fiscal stewardship in mind: Use innovative and creative design
approaches to reduce costs and conserve resources for construction and life cycle
costs, including operation, maintenance, and replacement costs. Include external costs,
such as climate change impacts, to capture the full cost of specific design treatments.

Design Policy 5. Avoid, minimize, and mitigate environmental impacts of the transportation
system using Green Infrastructure design, street trees, wildlife habitat or waterway crossing
improvements and other approaches.

The negative effect that transportation infrastructure has on the health of the natural
environment, particularly urban waterways, and habitat connectivity, is well documented.
Transportation infrastructure has the potential to degrade water quality, create barriers
to corridors for animal travel and increase air, noise and light pollution. Projects also have
the potential to negatively impact cultural and historical resources if not planned and
implemented carefully.

Projects should be designed to avoid or minimize impact or if avoidance is not possible, to

maximize enhancement, protection, and improvement of natural, community and cultural

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resources through the application of Green Infrastructure design treatments. 27 The avoid,
minimize, or mitigate approach is known as sequencing and involves understanding the
affected environment and assessing transportation effects throughout the project
development process.

The sequencing for projects follows this order:

• Avoiding the impact altogether by not taking a certain action or parts of an action.
• Minimizing impacts by limiting the degree or magnitude of the action and its
implementation.
• Rectifying the impact by repairing, rehabilitating, or restoring the affected
environment.
• Reducing or eliminating the impact over time by preservation and maintenance
operations during the life of the action or project.
• Compensating for the impact by replacing or providing substitute resources or
environments.

All streets and trails must manage stormwater, treating runoff to reduce pollution and
infiltrate water into the ground, limiting how much stormwater and pollutants eventually
make their way into vulnerable natural waterways. By incorporating green infrastructure
treatments such as vegetated medians, planters, curb extensions and street trees, streets
and trails can function as urban green corridors that not only manage stormwater but
mitigate the harmful impacts of transportation on air, water, and wildlife habitat and
connectivity. This function of streets and trails is imperative to human and environmental
health.

One of the distinct advantages of having streets and trails function as green streets over
“grey infrastructure” for stormwater management is their superior treatment of
pollutants running off from roadways. While grey infrastructure options may have
smaller footprints, they are typically more expensive to maintain and fail if not

27
Refer to Appendix F for examples of mitigation strategies for different environmental resource areas. For
example, street trees, vegetated swales and other green street treatments can intercept rainwater and convey
stormwater in the public right-of-way, following best practices to minimize light pollution, installing appropriate
wildlife crossings, screening sensitive habitats from noise and light, enhancing vegetation associated with
wetlands and waterways for wildlife, limiting fill within wetlands, constructing bridges or open bottom culverts,
creating new wetland areas, and restoring or rehabilitating damaged wetlands and waterways, using pervious
materials and preserving, maintain or enhancing tree canopy. Refer to Metro’s handbooks Green Streets:
Innovative Solutions for Stormwater and Stream Crossings” and “Wildlife Crossings: Providing safe passage for
urban wildlife for more information on these designs.

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maintained. In addition, separate grey infrastructure elements are almost always needed
to manage runoff quality and quantity.

Street trees and other green streets infrastructure provide a wide array of benefits in
addition to stormwater management, offering wildlife habitat, improving air quality,
providing shade, and reducing the urban heat island affect, beautifying the surroundings,
promoting human well-being, and calming traffic.

On streets with high levels of walking and bicycling, street trees provide buffers from
traffic and air pollution. Green streets can be further supported by using dark skies
approaches to minimize the impact of street lighting on wildlife, human health, and the
natural environment. Designing streets and trails for stormwater management can also
incorporate and enhance other functions, such as placemaking. Agencies can use green
street elements to create a stronger sense of place and make walking and biking more
enjoyable.

Transportation agencies typically consider the following types of environmental, tribal,

cultural, and historical data during development of projects:
• High value fish and wildlife habitat areas and biodiversity corridors
• Threatened and endangered species, including vertebrate species and plants
• Vegetation and wildlife
• Fisheries
• Wetlands and waterways
• Flood hazard areas/floodplains
• Historic resources
• Tribal lands and legacies
• Air quality and greenhouse gas emissions

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Figure 3-18 Examples of how green infrastructure can help achieve regional goals
RTP Goal Examples of how Green Infrastructure can help achieve regional goals
Thriving Green infrastructure can promote economic growth as a valued public amenity,
Economy create construction and maintenance jobs, add to property value, support
walkable and bikeable communities, businesses, and commercial districts, and
lower the costs associated with climate change.

Protecting the environment and natural resources today can save money for
the future and reduce infrastructure construction and maintenance costs.
Mobility Green streets can promote active travel and access to transit by providing
Options enjoyable routes that are shaded and buffered from traffic. Green
infrastructure treatments, such as access management and medians with
bioswales, can be designed to support reliability and efficiency by reducing
crashes and conflicting movements.

Safe System Street trees and other green infrastructure can help calm traffic to desired
speeds, provide welcoming places that increase security, and improve
resiliency and reduce impacts of major storm events.
Climate Action Trees and green infrastructure can support climate adaptation by cooling
and Resilience streets, parking lots and buildings, better managing stormwater and reducing
the urban heat island effect. Trees and vegetation can be managed to
sequester greenhouse gases to help mitigate climate change.

Green infrastructure can enhance and protect the natural environment by

supporting clean air and water, filtering stormwater runoff, reducing erosion,
protecting, creating, and connecting habitat for birds, fish, and other wildlife.
Equitable Clean air and water and access to nature can be improved and habitat can be
Transportation preserved and enhanced when green infrastructure is provided in marginalized
communities.

Green infrastructure can reduce water, air, noise, and light pollution,
encourage active lifestyles and link people to trails, parks and nature that
enhance human health and well-being.

All stakeholders can be represented, including those that cannot speak for
themselves – wildlife and the natural environment. Performance-based
planning includes considering environmental effects throughout the planning
process.

Design Policy 6. Use a performance-based approach and decision-making framework to

plan and design transportation projects and networks.

As the demands on the transportation system increase, so does the need for flexibility in
how roadways are designed. Performance-based planning and design expands design
parameters to be more flexible. Performance-based planning and design incorporates
many performance measures to assess how well a project will achieve desired outcomes.
Measures and related goals may be weighted to ensure that a project supports priority
outcomes, for example reducing serious traffic crashes, identified in adopted plans and
policies and through community engagement.

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A performance-based design decision-making framework helps practitioners and
stakeholders track decisions throughout the life of a project, as illustrated in Figure 3-19.
This documentation process provides flexibility to choose the best design for a given
context, while providing an effective way to manage risk when designing new or
reconstructed roadways. The framework includes documenting the design
considerations, and alternatives that were evaluated, based on clearly outlined project
goals and meaningful stakeholder engagement.

Performance-based planning and design starts with a well-defined project need,

accompanied by goals and related objectives. It then works to align design decisions with
the project objectives and desired systemwide outcomes. This approach relies on
developing and comparing design alternatives, using performance measures and analysis
to assess progress toward achieving project objectives, and applying engineering
judgment, informed by a multidisciplinary team, to reach a preferred design. Refer to
Chapter 6 of the Designing Livable Streets and Trails Guide 28 for a step-by-step guide and
tools to address trade-offs and constraints.

28
Designing Livable Streets and Trails Guide [Link]
tools/guidelines-designing-livable-streets-and-trails

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Figure 3-19 The performance-based design decision-making framework

Figure 3-20 Regional design classifications map

To be added.

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3.3.3 Regional motor vehicle network vision and policies

While the greater Portland region has changed dramatically over the past century, the
shape of the major road network has not. Most regional streets were once farm-to-market
roads, established along Donation Land Claim boundaries at half-mile or one-mile
spacing. The region’s throughway system evolved from the mid-1930s, when the first
highway was built from Portland to Milwaukie, to the completion of I-205 in the early
1980s. Most of the throughway system was built along the same Donation Land Claim grid
that shapes the regional street network, with most throughways following older farm-to-
market routes or replacing major streets.

This inherited network design has proven to be an adequate match for accommodating
the changing travel demands of our growing region. The Regional Motor Vehicle Network
Concept applies this proven network design to developing and undeveloped areas in the
region, while seeking opportunities to bring existing urban areas closer to this ideal when
possible.

[Link] Regional motor vehicle network concept

The Regional Motor Vehicle Network Concept shown in Figure 3-21 illustrates policies
for developing a complete and well-connected motor vehicle network that is safe and
reliable, provides adequate capacity and supports all modes of travel.

Figure 3-21 Regional motor vehicle network concept

Image shows a conceptual network of streets, illustrating multimodal transportation corridors and showing ideal
spacing of arterial streets. Most of the region’s travel occurs off the throughway network, on a network of

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multimodal arterial streets that are further complemented by a well-connected network collector and local
streets. The RTP policy places an emphasis on ensuring that arterial networks are fully developed as the region
grows, providing both local circulation and preserving throughway capacity for regional and statewide travel.

[Link] Regional motor vehicle network policies

The planned motor vehicle network is defined by the roadway capacity defined in Table
3-8 (also see Table 3-6 in Section 3.3.1). The planned motor-vehicle network, by
functional classification, is shown in Figure 3-23. Adding motor vehicle capacity beyond
the planned system is subject to the regional Congestion Management Process defined in
Section 3.3.4.
Table 3-8 Planned motor-vehicle network capacity
Motor Vehicle Functional Classification Typical Number of Planned Travel Lanes
Throughway Up to 6 through lanes with auxiliary lanes in some places
Highway Up to 6 through lanes with auxiliary lanes in some places
Major arterial Up to 4 through lanes with turn lanes and median
Minor arterial 2 to 4 through lanes with turn lanes and median

The regional motor vehicle concept and policies call for adequately maintaining the motor
vehicle network, applying the congestion management process (Section 3.3.4) and
regional mobility policy (Section 3.2.6) and data to identify needs and solutions;
managing and optimizing throughway capacity to serve regional, statewide and interstate
travel; and implementing a well-connected network of local, collector and arterial streets
that is tailored to fit local geography, respect existing communities and planned
development, and protect the natural environment. Increased network connectivity
improves travel reliability and expands travel options.

Policy 1 Preserve and maintain the region’s motor vehicle network in a manner that
improves safety, security and resiliency while minimizing life cycle cost and impact
on the environment.

Policy 2 Use the Congestion Management Process, Regional Mobility Policy, safety and bike
and pedestrian network completion data to identify motor vehicle network needs
and solutions.

Policy 3 Actively manage and optimize capacity on the region’s throughway network to
maintain mobility and accessibility and improve reliability for longer, regional,
statewide, and interstate travel.

Policy 4 Complete the region’s planned throughway network up to six travel lanes (three
lanes in each direction) as envisioned in the 2040 Growth Concept.

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Policy 5 Prior to adding new throughway capacity beyond the planned system of motor
vehicle through lanes, including adding or extending an auxiliary lane of more than
one-half mile, demonstrate that system and demand management strategies,
including access management, transit and freight priority, pricing, transit service and
multimodal connectivity improvements cannot adequately address identified needs
consistent with the Congestion Management Process and Regional Mobility Policy.

Policy 6 Prior to adding or extending an auxiliary lane of one-half mile or more, determine
whether the new individual auxiliary lane alone or in combination with auxiliary
lanes in the same corridor will collectively influence capacity, or alternatively
whether each of the auxiliary lanes operate independently and address localized
safety issues consistent with the Congestion Management Process and Regional
Mobility Policy.

Policy7 Actively manage and optimize arterials according to their planned functions to
improve reliability and safety and maintain mobility and accessibility for all modes of
travel.

Policy8 Complete a well-connected network of arterial streets ideally spaced at

approximately 1-mile apart and planned for up to four travel lanes to maintain
transit and freight mobility and accessibility and prioritize safe pedestrian, bicycle
and transit access for all ages and abilities using Complete Street design
approaches. 29

Policy 9 Complete a well-connected network of collector and local streets that provide for
local circulation and direct vehicle, bicycle and pedestrian access to adjacent land
uses and to transit for all ages and abilities.

Policy 10 Prior to adding new arterial street capacity beyond the planned system of motor
vehicle through lanes, demonstrate that system and demand management
strategies, including access management, transit and freight priority, transit service,
and multimodal connectivity improvements cannot adequately address identified
needs consistent with the Congestion Management Process and Regional Mobility
Policy.

29
The number of through lanes may vary based on right-of-way constraints or other factors. Some places in the
region may require additional lanes due to a lack of network connectivity. Major and minor arterial streets can
either be 2 or 4 lanes with turn lanes as appropriate.

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Motor Vehicle Network connectivity

A well-connected network of complete streets is critical to achieving the 2040 Growth

Concept vision. In general, the roadway network should be designed to provide for trips
through or across the region on throughways, shorter trips through portions of the region
on arterial streets and the shortest trips on collector and local streets.

This approach results in a street hierarchy of:

• throughways (for example controlled-access facilities such as I-84, US 26, I-5, I-205
and I-405 and other non-freeway facilities with traffic signals such as OR 99E, US 30,
OR 212)
• arterial streets (for example, Cornell Road in Washington County, 82nd Avenue in the
City of Portland and Sunnyside Road in Clackamas County)
• collector streets
• local streets

The traditional street classifications for throughways, arterial streets and other streets
are a good starting point for distributing traffic in communities to avoid bottlenecks on
overburdened routes or avoid the need to build overly wide streets as a community
grows.

Throughways serve as longer-distance mobility routes, with limited access, and an

emphasis on connecting major destinations. Arterial streets provide both mobility,
moving traffic, goods, and people within the region, and access to property along the
street.

Building a regional motor vehicle network to accommodate all motor vehicle traffic
during peak travel periods is not feasible or practical nor would it be desirable
considering the environmental, climate, and community impacts.

By developing a well-connected network, the region can spread traffic across the entire
network, reducing the need to overburden a few facilities. This will help reduce
bottlenecks and congestion hotspots, decreasing the need to widen roads and
intersections beyond their typical design. Connectivity also supports transit, biking and
walking by making trip distances shorter and more direct and convenient. Improved
travel reliability is a key overall outcome of all connectivity-oriented strategies. Refer to
Section 3.3.2 for street design policies and principles.
Typical spacing and planned capacity for arterial streets

The regional motor vehicle network concept calls for one mile spacing of major arterial
streets, with minor arterial streets or collector streets at half-mile spacing, recognizing

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that existing development, streams and other natural features may interfere with this
spacing. Major and minor arterial streets can be either 2 or 4 lanes with turn lanes as
appropriate. Streets with 4 or more lanes should include medians, where possible, with
appropriate median openings for turning movements and turn lanes. Access management
strategies should be used on arterial streets and all streets with 4 or more lanes.

Shown in Figure 3-21, the illustrative arterial street network is complemented by a well-
connected network of collector streets. This network of arterial and collector streets is
multi-modal in design, serving automobiles, motorcycles, trucks, transit, bicycles and
pedestrians. The regional arterial street design with a median reflects an accepted design
that can support safe travel by all modes, accommodating urban levels of traffic, while
also providing for bicycle and pedestrian travel and safe crossings at major intersections.

Traffic speeds, access and level of street connectivity vary depending on the function of
the street. The design of transportation facilities should consider the facility’s traffic
function, all modes of travel, and community development goals. As identified in the
Regional Active Transportation Plan and Metro’s livable street design guidelines, traffic
speeds, traffic volumes and the volume of heavy trucks should be considered in the design
of pedestrian and bicycle facilities on streets on the regional network.

Research and experience have shown that there are optimal street designs for various
types of roadways. Street design, combined with connectivity help reduce congested hot
spots and improve reliability. Local streets and collectors are planned to consist of 2-lanes
with turn lanes where needed, major arterials are planned to consist of up to 4-lanes with
medians and with turn lanes and access management strategies. Therefore, before adding
additional through lanes beyond the planned system, plans and studies must demonstrate
that the additional lanes beyond the planned system do not compromise the function of
the roadway for all modes and that the planned system of through lanes, transit service,
bike, pedestrian and other parallel arterial, operational, system and demand management
solutions do not adequately address transportation needs first, prior to considering
widening arterial beyond the planned system to address identified needs.
Throughways and auxiliary lanes

Throughways span several jurisdictions and often are of statewide importance linking the
greater Portland area with neighboring cities, other parts of the state, other states, and
Canada. Throughways are planned to consist of six through lanes (three lanes in each
direction) with grade–separated interchanges or intersections, and serve as the
workhorse for regional, statewide, and interstate travel. Additional through travel lanes
may be needed in some places based on the importance of a facility to regional and state
economic performance, excessive demand and limitations or constraints that prevent

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creation of a well-connected street network due to topography, existing neighborhoods,
or natural resource areas.

Throughways carry between 50,000 to 100,000 vehicles per day, providing higher-speed
travel for longer motor vehicle trips and serving as primary freight routes, with an
emphasis on mobility. Throughways help serve the need to move both freight trucks and
autos through the region. Throughways connect major activity centers within the region,
including the central city, regional centers, industrial areas and intermodal facilities.

The Throughway functional classification corresponds to the Expressways functional

classification in the Oregon Highway Plan. There are two types of Throughway designs as
described in Table 3-8. Freeways, which are limited-access and completely grade
separated interchanges and Highways, which include a mix of separate and at-grade
access points. Throughway interchanges that are designated as Freeways in the OHP
should be spaced no less than one mile apart in urban areas. 30

An auxiliary lane is the portion of the roadway adjoining the through lanes for speed
change, turning, weaving, truck climbing, maneuvering of entering and leaving traffic, and
other purposes supplementary to through-traffic. An auxiliary lane provides a direct
connection from one interchange ramp to the next. The lane separates slower traffic
movements from the mainline, helping smooth the flow of traffic and reduce the potential
for crashes and is not intended to function as a general purpose travel lane. Auxiliary
lanes add additional motor vehicle capacity.
Analysis of throughway and auxiliary lanes

Prior to adding new throughway capacity beyond the planned system of motor vehicle
through lanes, or adding or extending an auxiliary lane of more than one-half mile in
length, or re-striping an auxiliary lane to serve as a general purpose through lane,
transportation agencies must demonstrate that system and demand management
strategies, including access management, transit and freight priority, pricing, transit
service, and multimodal connectivity improvements cannot adequately address identified
needs consistent with the Congestion Management Process and Regional Mobility Policy.

When a series of auxiliary lanes are added in the same corridor or one or more existing
auxiliary lanes are extended through one or more interchanges, the auxiliary lanes may
begin to function more like a general purpose travel lane. Therefore, prior to adding or
extending an auxiliary lane of more than one-half mile, transportation agencies must
whether the new individual auxiliary lane alone or in combination with auxiliary lanes in

30
One mile is the minimum interchange spacing distance identified for Freeways in urban areas in Oregon. See
[Link] for more information.

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the same corridor will collectively influence capacity and measurably increase vehicle
miles traveled, or alternatively whether each of the auxiliary lanes are operate
independently and only address localized safety issues. Chapter 8 defines the parameters
for future corridor refinement planning work specific to each regional mobility corridor,
consistent with the Congestion Management Process and Regional Mobility Policy.
Arterial streets

Arterial streets are intended to provide general mobility for travel within the region and
provide important connections to the throughway network. Arterial streets connect
major commercial, residential, industrial, and institutional centers with each other and
link these areas to the throughway network. Arterial streets are usually spaced about one
mile apart and are designed to accommodate motor vehicle, truck, bicycle, pedestrian and
transit travel.

Arterial streets carry between 10,000 and 40,000 vehicles per day. Desired travel speeds
vary depending on the surrounding and planned land use. Major arterial streets
accommodate longer-distance trips and serve a regional traffic function. Minor arterial
streets serve shorter trips that are localized within a community. As a result, major
arterial streets usually carry more traffic than minor arterial streets. Research has
highlighted the important role of major arterial streets in achieving regional goals for
equity, safety, land use, economic development, and mobility, especially for transit. 31
Many funding, design, and policy challenges exist to improving them.

Streets designated with an arterial functional classification are shown in Figure 3-23 and
include Boulevard and Streets described in Table 3-6.
Safety on arterial streets

Safety is a primary concern on the regional arterial system, where approximately 60

percent of the region’s fatal and severe injury crashes occur. For this reason, much of the
focus for achieving the region’s Vision Zero target will fall upon improving safety on
arterial streets. More attention to designs and operational strategies that have been
demonstrated to improve the safety of the arterial system could reduce the number of
people killed and injured, using national best practices as a guide. Efforts to substantively
improve transportation safety in the region must give arterial roadways high priority,
with a focus on the region’s high injury corridors, and may include:

31
Metro “Safe and healthy urban arterials 2023 RTP policy brief”, September 8, 2022
[Link]
0policy%[Link]

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• proven designs and strategies such as medians, speed management, access
management, improved pedestrian crossings and street lighting, replacing
intersections with roundabouts, reducing speeds to levels which are safe for
pedestrians, and road diets; and
• enforcement actions targeting high-risk behaviors, such as speeding, aggressive
driving, driving under the influence, red-light running, and failure-to-yield at bike and
pedestrian crossings; and
• education initiatives intended to promote safer behavior among all users of the
transportation system.

Meeting regional safety targets requires ongoing, concerted efforts to continue to make
the region’s arterial roadways (also referred to as urban arterials) safer, especially for
pedestrians. Serious injury crash rates are used to prioritize corridor safety efforts.
Collector and local street connectivity

Collector and local streets are general access facilities that provide community and
neighborhood circulation. They are not usually part of the regional transportation system
except when located within designated 2040 areas or when they are part of the Regional
Bicycle Network or Regional Pedestrian Network. Collector and local streets play an
important role to the design and optimization of the regional transportation system.
When local travel is restricted by a lack of connecting routes, local trips are forced onto
the arterial and/or throughway networks, in some cases causing congestion on the
regional system.

Local jurisdictions are responsible for defining the network of local and collector streets
within the one-mile spacing grid of arterial streets. The Regional Transportation
Functional Plan (RTFP) which implements the Regional Transportation Plan (RTP) and
establishes the requirements for Transportation System Plans requires local street
spacing of no more than 530 feet in new residential and mixed-use areas, and cul-de-sacs
are limited to 200 feet in length to distribute vehicle movements and provide direct
bicycle and pedestrian routes. 32 More frequent bike and pedestrian connections are
required where collector and local streets cannot be constructed due to existing
development or other topographic or environmental constraints.

A goal of the requirements is to encourage local traffic to use local and collector streets to
minimize local traffic on regional arterial streets. Local street connectivity also benefits

32
Regional Transportation Functional Plan [Link]
plan

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emergency response and access to schools and transit stops. Designs should retain the
neighborhood character and livability along these local routes.

Figure 3-22 Collector and local street network concept

Image shows an idealized concept for illustrative purposes showing desired spacing for collectors and local
streets in residential and mixed-use areas to serve local circulation, walking/rolling and bicycling. The illustration
is modeled after neighborhoods in Southeast Portland.

Shown in Figure 3-22, the collector and local street network concept provides for bicycle
and pedestrian travel and provides for direct access from local street networks to
community destinations and transit on regional arterial streets.
Collector streets

Collector streets provide both access and circulation. As such, collectors tend to carry
fewer motor vehicles at lower travel speeds than arterial streets. Collectors may serve as
freight access routes, providing connections from industrial or commercial areas to the
arterial network. Collector streets serve neighborhood traffic. Collectors provide local
circulation alternatives to arterial streets. Collectors provide both circulation and access
within residential and commercial areas, helping to disperse traffic that might otherwise
use the arterial network for local travel.

Collectors may also serve as local bike, pedestrian, and freight access routes, providing
connections to the arterial and transit network. Collectors usually carry between 1,000
and 10,000 vehicles per day, with volumes varying by jurisdiction. Collector streets are
ideally spaced at half-mile intervals, or midway between arterial streets. Auto speeds and
volumes on collector streets are moderate.

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Local streets

Local streets primarily provide direct access to adjacent land uses, and usually between
200-2,000 vehicles per day, with volumes varying by jurisdiction. Vehicle speeds on local
streets are relatively low, which makes them good candidates for people biking,
walking/rolling traveling to and within centers, to schools and to transit stops and
stations.

While local streets are not intended to serve through traffic, the local street network
serves an important role for supporting bicycle and pedestrian travel. As a result, regional
local street connectivity policies require communities to develop a connected network of
local streets to increase access to designated centers, to schools and to transit stops and
stations on the regional transit network by people biking and walking or rolling.

[Link] Regional motor vehicle network classifications and map

The Regional Motor Vehicle Network is shown in Figure 3-23.

Figure 3-23 Regional motor vehicle network map

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3.3.4 Congestion management process

This section outlines the policy for implementing system and demand management
strategies and other strategies prior to building new motor vehicle capacity, consistent
with the Federal Congestion Management Process (CMP) and Oregon Transportation Plan
(OTP) policies (including Oregon Highway Plan Policy 1G). Section 3.08.220 of the
Regional Transportation Functional Plan (RTFP) implements the Regional Transportation
(RTP) and establishes the requirements for Transportation System Plan. 33 In some parts
of the greater Portland region the transportation system is generally complete, while in
other parts of the region, especially those where new development is planned, significant
amounts of infrastructure will be added. In both contexts, management strategies have
great value. Where the system is already built out, such strategies may be the only ways to
manage congestion and achieve other goals. Where growth is occurring, system and
demand management strategies can be integrated before and during development to
efficiently balance capacity with demand. New technologies are reducing the cost of
demand management and new possibilities are emerging with autonomous and
connected vehicles.

One component of the Congestion Management Process (CMP) is a toolbox of congestion

reduction and mobility strategies, as shown in Table 3-9. This toolbox identifies a suite of
strategies to manage congestion and address mobility needs prior to utilizing traditional
roadway widening and other capacity projects. Prior to adding single occupant vehicle
(SOV) capacity, agencies and jurisdictions should give consideration to the various
strategies identified in this section, consistent with FHWA direction and RTP and OTP
policies. Usually, multiple strategies are applicable within a corridor, while other
strategies are intended to be applied region wide.

The CMP toolbox strategies were assembled to provide a wide range of strategies that
could be used to manage congestion region-wide or within congested mobility corridors.
They are arranged so that the strategies are considered in order from first to last. Even
with the addition of capacity, many of the strategies can be implemented with the project
to ensure the long‐term management of a capacity project.

The CMP toolbox of strategies is shown in Table 3-9.

33
Regional Transportation Functional Plan [Link]
plan

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Table 3-9 Toolbox of strategies to address congestion in the region
Community design strategies
• Walkable communities and job centers facilitated by compact land

1 use in combination with walking, biking and transit connections

• Mixed-used areas and transit-oriented development
• Parking management and pricing
Travel Information and Incentives strategies

2
• Commuter travel options programs
• Household individualized marketing programs
• Car-sharing and eco-driving techniques
• Safe Routes to School programs
• Ridesharing (carpool, vanpool) services
System management and operations strategies

3
• Real-time variable message signs and speed limits
• Signal timing and ramp metering
• Transit signal priority, bus-only lanes, bus pull-outs
• Incident response detection and clearance
• Access management (e.g., turn restrictions, medians)
Congestion pricing strategies
Emerging • Peak period pricing
• Managed lanes
• High occupancy toll (HOT) lanes

Active Transportation strategies

4
• New biking and walking connections to schools, jobs, downtowns
and other community places
• Bicycle infrastructure (e.g., bicycle racks, lockers and other bicycle
amenities at transit stations and other destinations)
• Separated pathways and trails
Transit strategies

5
• High capacity transit
• Expanded transit coverage
• Expanded frequency of service
• Improvements in right-of-way to increase speed and reliability of
buses and MAX
• Community and job connector shuttles
• Park-and-ride lots in combination with transit service
Street and throughway capacity strategies

6
• Local and arterial street connectivity to spread out travel
• Addition of turn lanes at intersections, driveway restrictions and
other geometric designs such as roundabouts
• Road widening to add new lane miles of capacity (e.g., adding
auxiliary lanes, additional general-purpose lanes); pricing is
considered when adding new throughway capacity in the region
The intent of the CMP Toolbox follows FHWA’s direction to consider all available
solutions before recommending additional roadway capacity in transportation system
planning, corridor refinement planning and subarea studies. Appendix L describes how
this information is used in the region’s process and RTP updates to identify needs and
inform consideration and prioritization of multimodal strategies and investments to
address congestion in the region.

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3.3.5 Regional transit network vision and policies

With continued regional growth, come challenges including more congestion, higher
housing prices, and constrained access to employment and daily needs. Increased transit
service is a critical part of the overall solution to regional challenges. But the COVID-19
pandemic disrupted both transit use and service in the region. To achieve the regional
vision in the 2040 Growth Concept and Climate Smart Strategy, transportation agencies
and partners must meet the needs of people using transit today, while continuing to
realize the Regional Transit Vision 34 to increase transit use and make transit more
convenient, accessible, affordable, and frequent for everyone, especially those who rely on
it.
Make transit more frequent by aligning frequency and type of transit service to meet existing and
projected demand in support of local and regional land use and transportation visions. Frequent
transit service is defined as service that operates at a maximum of 15 minutes intervals, but this isn’t
the only type of service. Regional and local transit service provides basic service and ensures that
most the region’s population has transit service available to them; service span and frequencies vary
based on the level of demand for the service. Because of limited resources, it is important to ensure
that service meets demand. Frequency therefore means aligning the frequency and type of service to
meet existing and/or projected demand for an area.
Make transit more convenient, and competitive with driving, by improving transit speed and
reliability using transit priority treatments and other strategies. Improve transit rider experience with
seamless connections between transit providers, including transfers, information, and payment.
Additionally, road authorities can partner with the transit agencies to implement transit priority
treatments.
Make transit more accessible by promoting transit-oriented development of station areas and
ensuring safe and direct biking and walking routes and crossings that connect to stops, as well as
improve accessibility for seniors and persons with disabilities to ensure transit is accessible for
everyone. Accessibility could also include park and ride facilities and drop off/pick up areas. Expand
the system to improve access to jobs and essential destinations and daily needs.
Making transit affordable is the cornerstone of the other components of our vision. Frequency,
convenience, and accessibility are meaningless if transit is not affordable. Additionally, affordability
ensures that the transit system is equitable for low-income populations, communities of color and
those who rely on transit services rather than private automobiles to meet their daily transportation
needs.

[Link] Regional transit network concept

The regional street system has carried public transit for more than a century, beginning
with the streetcars of the late 1800s and evolving into a combination of vans, buses,
streetcars, and light rail trains today. The Tri-County Metropolitan Transportation District

34
Link to 2018 Regional transit strategy [Link]

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of Oregon (TriMet) is the primary public transportation provider for the greater Portland
region. The South Metro Area Regional Transit (SMART) in Wilsonville provides regional
transit service connecting Wilsonville to Portland and communities in Washington and
Clackamas counties. In 2017, the state legislature, through HB 2017, designated
Clackamas, Multnomah and Washington Counties as Public Transit Service Providers. The
counties receive funding from the Statewide Transportation Improvement Fund to
implement transit services to meet goals established by HB 2017, including providing
services in areas not well-served by fixed route transit.

Bus service in other surrounding areas, all with connections to the regional network, is
also provided by C-TRAN (Clark County, WA), Ride Connection, South Clackamas Transit
District (SCTD), Cherriots (Salem, OR), Tillamook County Transportation District
(Tillamook, OR), and Yamhill County Transit Area (Yamhill County, OR). Just outside of
the greater Portland region, Sandy Area Metro (SAM) and Canby Area Transit (CAT)
provide transit service for Sandy and Canby.

Transit is key to supporting the region’s 2040 Growth Concept, which calls for focusing
future growth in regional and town centers, station communities and 2040 corridors. A
regional transit network, coupled with transit-supportive development patterns and
policies that support taking transit, biking, and walking, will be necessary to help the
region:
• be less dependent on automobiles;
• more equitably serve communities of color and other marginalized communities;
• reduce overall transportation and housing costs;
• lead healthier lives;
• reduce greenhouse gas emissions.

As part of the 2040 Growth Concept, transit is critical to connecting centers.

Figure 3-24 shows how the regional transit system concept would connect the 2040
centers.

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Figure 3-24 Regional transit network concept

Image shows a graphic concept of the regional transit network with different levels and types of transit routes
connecting centers and places in the region. The 2040 Growth Concept set forth a vision for connecting the
central city to regional centers like Gresham, Clackamas and Hillsboro with high capacity transit. The High
Capacity Transit Strategy expands this vision to include town centers like Milwaukie, Troutdale, and Sherwood
along corridors to build onto that vision. The RTP goes further to include a complete network of regional transit
along most arterial streets to better serve existing and growing communities. Existing land use mixes and future
transit-oriented development potential should be considered and incorporated into service and station location
decisions.

To leverage transit investments, it is important for cities and counties to ensure land uses
are transit-supportive and support local and regional land use and transportation plans
and visions to leverage and protect transit investments.

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Adjacent land uses, block size, street connectivity, and parking management affect the
success of transit service. Policies and investments that support transit best can be found
in Table 3-10.
Table 3-10 Effects of land use on transit service
Characteristic Supportive Not Supportive

Density High Low

Street layout Small blocks Long, winding streets
Grid system Cul-de-sacs, dead-end
Mix of uses Mixed use (e.g., commercial, Single use (e.g., all
residential, and office uses) residential, all industrial)
Pedestrian and bicycle Wide sidewalks Narrow or no sidewalks
environment Slow moving traffic Fast moving traffic
Street elements (e.g., benches, Poor lighting
street trees, pedestrian-scale No intersection markings
lighting) and long pedestrian wait
Well-marked intersections times
with signalized crossings
Bicycle parking
Site design Buildings front the street and Buildings set back from the
entrances street and surrounded by
surface parking
Parking Limited Abundant
Fee-based parking Free

Source: TriMet

Transit-supportive development patterns include:

• A compact urban form that places destinations near transit.
• A mix of uses, and a balance of jobs and housing, which creates a place where activity
occurs at least 18 hours a day.
• Locating a mix of services near transit, including grocery stores and medical clinics.
• Locating affordable housing options, particularly for older adults, seniors and people
with disabilities, near frequent transit.
• Well-designed streets and buildings that encourage pedestrian travel.
• Streets that can accommodate 40-foot buses.
• Safe and efficient multi-modal interactions at transit stops and stations.
• Safe, direct and convenient pedestrian and bicycle access, within communities and to
transit stops and stations.

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• Street connectivity with good pedestrian and bike connections to extend the effective
coverage of bus and rail service.
• Managed on-street and off–street parking.

Areas with low population and/or employment densities, abundant free parking, and with
difficult access to transit stops generate fewer riders than areas with transit-supportive
development. When fewer riders are generated, it costs more per ride to provide transit
service than it does in transit-supportive areas. Ridership productivity is a key criterion
in assessing the benefits of service improvements and new transit investments.

[Link] Regional transit network functional classifications and map

The Regional Transit Network includes future regional and local bus, better bus corridors,
high capacity transit and intercity rail, reflecting the region’s future transit vision as
identified by Portland Streetcar System Concept Plan, TriMet’s Service Enhancement
Plans, SMART’s Transit Master Plan, as well as local Transportation System Plans. Shown
in Figure 3-26, the Regional Transit Network map includes connections envisioned in the
2023 High Capacity Transit Strategy and future transit service. The map also highlights
areas planned to be served by community-job connector shuttles, including current and
planned routes identified in Clackamas and Washington County’s transit development
plans.
The existing and planned system includes a variety of transit modes, each with a special
function in the overall system. Local, regional, and frequent service bus lines are the
workhorses of our transit system. The transit providers plan for improving and expanding
transit service through service enhancement plans, master plans and through annual
service planning.
The bus system operates in mixed traffic and provides service across the region.
Alongside our bus system, we have implemented streetcar and corridor-based rapid bus.
These services, along with frequent bus service, can and do include a variety of transit
priority treatments. These tend to be more frequent and carry more transit riders than
the regional and local bus system. The better bus program, new to our region, provides
that transit priority to help improve transit speed and reliability above traditional transit
service.

The region’s high capacity transit system operates with most of the service in exclusive
right-of-way, consisting of six lines over a 75-mile network that serves more than 130
stations in the city of Portland, and the communities of Beaverton, Clackamas, Gresham,
Hillsboro, and Milwaukie, and Portland International Airport. The high capacity transit
system is the backbone of the transit network, meant to connect to regional centers and
carry more transit riders than the local, regional, and frequent service transit lines.

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Figure 3-25 shows the broad transit spectrum that exists or is planned for regional
transit system.

Figure 3-25 Regional transit spectrum

Many variables impact decisions about what type of transit mode and frequencies are
most appropriate, including existing and future land uses, transit demand and
opportunities and constraints.

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Figure 3-26 Regional transit network map

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Implementation of the regional transit vision

The Regional Transit Vision will be implemented through improving service, investing in
infrastructure, collaborating between transit providers and local jurisdictions and
expanding transit supportive elements:
• Transit service improvements: local and regional transit service improvements
designed to meet current and projected demand in line with local and regional visions
and plans.
• Capital investments in transit: enhanced transit strategies that make Better Bus
such as signal priority and/or dedicated lanes, or high capacity transit options such as
bus rapid transit, light rail. commuter rail or high speed rail.
• Transit supportive elements: including programs, policies, capital investments and
incentives such as Travel Demand Management and physical improvements such as
sidewalks, crossings, and complementary land uses.
Figure 3-27 shows the relationships between these different types of investments.

Figure 3-27 Service improvements, capital investments and transit supportive elements

Public agencies and transit providers must collaborate in prioritizing transit investments
throughout the region. With the passing of House Bill 2017, the Oregon Legislature
identified transit improvements and service expansion as a priority for the state. With

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this additional funding, the region will be able to significantly increase and expand transit
service. This only highlights the need to collaborate between transit providers.

[Link] Regional transit network policies

Regional transit priorities are informed by the following policies which aim to provide
transit as an attractive, convenient, accessible, and affordable travel option for all people
in the greater Portland region, optimize existing transit system operations and ensure
transit-supportive land uses are implemented to leverage the region’s current and future
transit investments. Together, these policies regional goals.

Policy 1 Provide a high-quality, safe and accessible transit network that makes transit
a convenient and comfortable transportation choice for everyone to use.

Policy 2 Ensure that the regional transit network equitably prioritizes service to those
who rely on transit or lack travel options; makes service, amenities, and
access safe and secure; improves quality of life (e.g., air quality); and
proactively supports stability of vulnerable communities, particularly
communities of color and other marginalized communities.

Policy 3 Create a transit system that encourages people to ride transit rather than
drive alone and supports transitioning to a clean fleet that aspires for net
zero greenhouse gas emissions to meet state, regional, and local climate
goals.

Policy 4 Maintain the region’s transit infrastructure in a manner that improves safety,
reliability and resiliency while minimizing life-cycle cost and impact on the
environment.

Policy 5 Complete a well-connected network of local and regional transit on most

arterial streets – prioritizing expanding all-day frequent service along
corridors and main streets linking town centers to each other and
neighborhoods to centers.

Policy 6 Complete and strengthen a well-connected high capacity transit network to

serve as the backbone of the transportation system. Prioritize transit speed
and reliability to connect regional centers with the Central City, link regional
centers with each other, and link regional centers to major town centers.

Policy 7 Make capital and traffic operational treatments in key locations and/or
corridors to improve transit speed and reliability for frequent service.

Policy 8 Support expanded commuter rail and intercity transit service to neighboring
communities and other destinations outside the region.

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Policy 9 Increase access to transit by improving pedestrian and bicycle access to and
bicycle parking at transit stops and stations. Use new mobility services to
improve connections to high-frequency transit when walking, bicycling or
local bus service is not an option.

Policy 10 Use technology to provide better, more efficient transit service, including
meeting the needs of people for whom conventional transit is not an option.

Policy 11 Make transit affordable, especially for people with low incomes.

Transit Policy 1. Provide a high quality, safe and accessible system that makes transit a
convenient and comfortable transportation choice for everyone to use.

The region’s economic prosperity and quality of life depend on a transportation system
that provides every person and business in the region with access to safe, efficient,
reliable, affordable, and healthy travel options. But recovering from the pandemic-era
ridership slump and meeting the region’s transit ridership goals will require broader
action, potentially including rethinking how transit serves the region’s centers, finding
resources to increase service, and redesigning streets to keep buses moving.
Figure 3-28 Tools for building a high-quality transit system

Rapid streetcar has less stops and more street priority for regional mobility between centers. Streetcar extends
the reach of the high capacity transit network by facilitating mobility as a circulator within major centers.

A complete and seamless transit system is based on providing frequent and reliable bus
and rail transit service during all times of the day, every day of the week. This goes far
beyond the responsibility of the transit agencies; it requires actions on behalf of the

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region and all the jurisdictions. Preferential treatments, such as transit signal priority,
covered bus shelters, curb extensions, special lighting, enhanced sidewalks, protected
crosswalks and bikeways, are all fundamental to making the transit network, especially
frequent bus and high capacity transit, function at its highest level. To provide frequent
and reliable service, regional partners must commit to investing in transit priority
treatments and high capacity transit to ensure that transit can take people where they
need to go on time.

Safe and comfortable access to the stations is critical to the rider’s experience and
convenience, but also makes transit fully accessible to people of all ages and abilities.
Similarly, typical fixed route transit service may not make sense for everyone throughout
the region. People often rely on demand-response transit as well. New shared mobility
models like microtransit could provide better service at lower cost in these situations and
in increasing access to high-demand corridors. Technology is another tool. Intelligent
transportation systems and services help improve the speed and reliability of transit. It
also means taking advantage of the growth in personal technology to efficiently
communicate information about transit options and leverage electronic, integrated
ticketing systems. As tolling and congestion pricing moves forward in the region,
discounts or exemptions should be considered to incentivize multimodal travel behavior
and reduce impacts, including exemptions for public transit and reduced pricing for
higher occupancy vehicles such as shuttles, vanpools, and carpools (Oregon Highway Plan
Policy 6.10).

Transit Policy 2. Ensure that the regional transit network equitably prioritizes service to
those who rely on transit or lack travel options; makes service, amenities, and access safe
and secure; improves quality of life (e.g., air quality); and proactively supports stability of
vulnerable communities, particularly communities of color and other marginalized
communities.

The region’s transit and broader transportation system should provide every person and
business with equitable access to have the same opportunity to thrive, regardless of their
race or ethnicity. Ridership during the pandemic held steadier on routes that have more
people of color and people with low incomes and routes that serve arterials with a mix of
jobs, housing, shops and other destinations. Making these trips more convenient and
reliable means that people who are more likely rely on transit today will have better
travel options. A regional transit system focused on mobility and access that addresses
the transportation disparities faced by communities of color has the ability to open
opportunities which can dramatically improve outcomes for people of color. By
addressing the barriers faced by communities of color, outcomes for other disadvantaged
communities will improve as well.

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Using equity as a lens to guide decisions more broadly will ensure that the transit system
benefits those who rely on it the most. An equity lens can also address disparities in:
• Access: New development and gentrification can lead to displacement, of which
people of color and low-income are disproportionately affected by. As housing and
transportation costs increase, households are being forced to move to areas with less
transit service. To address this, projects should be prioritized in equity focus areas.
• Safety and security: People with low-income and people of color across the country
disproportionately suffer from well-documented racial bias in and bear the burden of
policing. Racial disparities exist in enforcing transportation laws and rules and issuing
penalties for violations. Further, fines are not based on an individual’s ability to pay,
meaning that the penalty has greater impact for people with low-income and could
lead to compounding consequences such as debt. At the same time, people of color are
increasingly likely to be concerned for their safety when traveling due to fear of
harassment and discrimination. Agencies should continue to pursue alternatives to
policing (e.g., TriMet’s Safety Response Team) that discourage harassment without
enforcement.
• Technology: As more transit fare collection systems embrace contactless payment,
accessibility challenges can arise for people, especially people with low incomes or
who are undocumented, underbanked or unbanked. Agencies should continue to
monitor and pursue strategies to reduce barriers to accessing digital fare systems.

Offering ample opportunities for meaningful public engagement and input is critical to
hearing diverse perspectives on goals, policies and projects. Continuing to strengthen
existing partnerships with local community organizations can provide more individuals
with voices that may not have had the platform to be heard. Any transit planning effort
should directly incorporate community in the decision-making process.

Further, major infrastructure investments have implications within the communities they
are located. Historic data shows that high capacity transit investments such as light rail
contribute to both positive and negative outcomes for the communities they serve. Their
potential displacement from the economic pressures that the investment brings
undermines its long-term effectiveness. It is critical during planning for a new major
transit investment that a strategy be developed that considers both the positive and
negative impacts, particularly as it applies to the most at-risk populations who also tend
to be the most transit dependent. Key focus areas should include affordable transit-
oriented housing opportunities and contracting and job training benefits and
opportunities for displaced and marginalized populations.

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Transit Policy 3. Create a transit system that that encourages people to ride transit rather
than drive alone and supports transitioning to a clean fleet that aspires for net zero GHG
emissions, enabling us to meet our state, regional, and local climate goals.

Transit is a critical part of meeting regional goals for climate leadership and clean air, and
an integral part of implementing the Climate Smart Strategy. Improving and expanding
the transit system and use of transit in greater Portland will continue to play a significant
role in reducing transportation-related air pollutants, including greenhouse emissions.
For people to choose transit over driving, transit must be at least as convenient and
reliable. A transit trip needs to get people to their destination at the scheduled time,
consistently, and it must be easy to use. The route would ideally be a one-seat ride or have
seamless connections and fares between trains, buses, shuttles, streetcar, or active
transportation options, regardless of the provider. It should be a short walk or bicycle
ride via a safe, comfortable connection that is easy to find and navigate. Information about
schedules, transfers and real time arrivals would be readily available and easy to access
both on-board and at stops and stations. Most importantly, travel times need to be
competitive with other forms of travel. Regional partners should continue to pursue
strategies that prioritize transit travel times with signal priority and bus lanes, integrate
service, information, trip planning, and payment platforms across transit agencies,
improve sidewalk, crossing and bicycle facilities, and adopt technology to make transit
more predictable and user-friendly such as electronic fare and real-time monitoring
systems. By providing both more and better transit connections between where people
live and where they need to go, more people who drive today will be more likely to
choose to use transit to travel instead.

Ongoing efforts to convert bus fleets to low and zero-emissions vehicles will further
reduce emissions in the region. Electric trains and hybrid diesel/electric buses have been
part of the regional fleet for many years and battery-electric buses have been added more
recently. Both House Bill 2017 and the Low or No Emissions Buses and the federal Bus
Facilities Grant Program funded by the 2021 Bipartisan Infrastructure Law have provided
an opportunity to further invest in clean vehicles. As transit agencies in the region move
toward a fleet without emissions, many are switching to renewable biodiesel fuel to
reduce emissions in the interim. Further, renewable electricity from natural resources
like sun and wind can be used to power both transit vehicles and facilities. Cleaner
alternative fuels are the future of transit, and the region should continue to support the
transition to a clean transit fleet and facilities. As more people are encouraged to ride on
an improved and expanded transit network using clean vehicles, greater Portland will see
emissions reduced for the transportation system more broadly as well.

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Transit Policy 4. Maintain the region’s transit infrastructure in a manner that improves
safety, reliability and resiliency while minimizing life-cycle cost and impact on the
environment.

While our transit system is still relatively new, it is starting to need more repairs and/or
replacements to buses, streetcars, trains, and their infrastructure as they age. It will
become increasingly important to invest in upkeep as elements of the system begin to
reach the end of their useful life to maintain a state of good repair. It is critical to ensure
that it is well-maintained and to replace or improve outdated parts of our transit system
to preserve its efficiency. The Federal Transit Administration’s State of Good Repair
program for rail and bus rapid transit systems that are at least seven years old includes
incorporating industry best practices and recommendations related to reliability and
safety to help transit agencies maintain bus and rail systems as part of the federal
transportation performance management implementation.

It is also important to plan for future capacity needs of the transit system. As our region
grows and ridership on our public transportation system is ever increasing, the region is
starting to push the limits of what our existing infrastructure can handle. This creates
more transit bottlenecks throughout the region, increasing congestion and decreasing the
reliability of our transit system. Some lines already have many buses running behind
schedule due to heavy traffic, which leads to unpredictable service. Other lines suffer from
overcrowding. Popular lines will always have standees, but some trips have such high
ridership that at times, riders are unable to board and must wait for another vehicle. To
make transit more reliable and convenient, these factors must also be addressed.

Transit Policy 5. Complete a well-connected network of local and regional transit on most
arterial streets – prioritizing expanding all-day frequent service along corridors and main
streets linking town centers to each other and neighborhoods to centers.
Improve local service transit

The local transit network provides basic service and access to local destinations and the
frequent and high capacity transit network. It is designed to provide full transit service
coverage to the region, ensuring that most of the region’s population has transit service
available to them – varying in type, frequency, and span based on needs and demand.
ITransit preferential treatments and passenger facilities are appropriate at higher
ridership locations.

Providing community and job connector shuttles increases the convenience of transit,
particularly for areas without frequent service transit or where traditional transit service
is not viable. Community and job connector shuttles also expand the reach of transit
service across the region, which improves access to jobs and community places and can

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help facilitate first/last mile connections where business and or homes are spread out and
regional fixed-route bus service is not cost effective.

One foundational support of the regional transportation system is the availability of

demand-response services. These services provide access to transportation that “fills in
the gaps” where fixed-route transit, complementary paratransit, or deviated fixed-route
“last mile” shuttle services are not the appropriate or most cost-effective tool to meet the
need of low-income individuals, seniors, or people with disabilities. They provide a
lifeline of service to people who experience barriers to accessing the transportation
system. Current service is still not enough to meet the existing demand or projected
growth in demand concurrent with the region’s growing population.
Expand regional and local frequent service transit

Providing regional transit along most arterial streets is another key piece of a high-quality
network better serving existing and growing communities. Frequent service transit is
defined as wait times of 15 minutes or less from the early morning to late in the evening,
seven days a week. Frequency is especially important for making transit more
competitive with driving for riders who take short, local trips, because the time riders
spend waiting for a bus to take a short trip is a proportionately larger component of the
total travel time than it is for longer trips. Frequent bus service is appropriate when high
ridership demand is demonstrated or projected, the streets are pedestrian-friendly, there
are high proportions of transit-dependent residents, the lines connect to existing or
proposed HCT corridors, and/or it serves multiple centers and major employers.

Transit Policy 6. Make capital and operational improvements in key locations and/or
corridors to improve transit speed and reliability for frequent service.

To meet the region’s environmental, economic, livability and equity goals as we grow over
the next several decades, we need to invest more to improve the efficiency of our system,
particularly the more congested corridors in the frequent service bus network, to better
support transit riders. More reliable, higher quality transit connections would better
connect low-income and transit-dependent riders to jobs, school, and services. A more
fine-grained network of higher-quality transit service complements high capacity transit
investments to help relieve transit congestion and grow ridership throughout the region.

There are many ways to increase transit speed and reliability throughout our system to
make the bus better and reduce time spent traveling by transit for people riding.
Improving the speed and reliability of our frequent service network could be
implemented at the regional scale, along corridors or at “hot spot” locations. Table 3-11
describes the different types of treatments that have the potential to improve reliability
that are part of the enhanced transit toolbox. Providing transit priority on the roadway
and/or at signals that help buses avoid delay and/or bypass traffic mean trips on these
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routes stay on schedule and/or are faster. These features, combined with other
preferential treatments, such as covered bus shelters, special lighting, enhanced
sidewalks and bicycle facilities, and protected crosswalks, are fundamental to making the
frequent bus network function at its highest level. The region should pursue these
opportunities as they arise.
Table 3-11 Better Bus treatments to enhance frequent transit service
Regional Hotspot
Bus on shoulder Dedicated bus lane
Transit signal priority and signal improvements Business access and transit (BAT) lane
Headway management Intersection queue jump/right turn except bus
lane
Corridor Transit-only aperture
Level boarding Pro-time (peak period only) transit lane
All door boarding Multi-modal interactions
Bus stop consolidation Curb extension at stops/stations
Rolling stock modification Far-side bus stop placement
Transit signal priority and signal improvements Street design traffic flow modifications

The Better Bus program employs public partnerships to implement treatments that
increase capacity and reliability, yet are relatively low-cost to construct, context-sensitive,
and able to be deployed quickly throughout the region where needed. Coordinated
investments by multiple partners have the potential to provide major improvement over
existing frequent service while being less capital-intensive and quick to implement than
large-scale high capacity transit. Investments could serve our many growing mixed-use
centers, corridors, and employment areas that demand a higher level of transit service but
are not seen as short-term candidates for light-rail or rapid bus (those identified as
Developing or Future corridors in the 2023 High Capacity Transit Strategy). This creates a
potential path for growing better bus into high capacity transit over time – starting with
incremental, smaller-scale improvements that can be leveraged later when implementing
a large-scale capital infrastructure investment.

Transit Policy 7. Complete and strengthen a well-connected high capacity transit network to
serve as the backbone of the transportation system. Prioritize transit speed and reliability to
connect regional centers with the Central City, link regional centers with each other, and
link regional centers to major town centers.

High Capacity Transit (HCT) investments help the region concentrate development and
growth in its centers and corridors. It is the backbone of the transportation network,
connecting people to the central city, regional centers and major town centers with high-
quality service (i.e., fast, frequent, safe and reliable). Linking these activity centers and
station communities better connects people with essential jobs, services, commerce and
other major destinations (e.g., colleges, hospitals, affordable housing). High capacity
transit serves regional routes where the most people need to travel to get where they
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need to go, often with relatively long trip lengths, to provide a viable alternative to the
automobile in terms of convenience and travel time. These corridors make more broad
connections across the region where the bus or other types of transit make connections
and provide complementary services to fill in the network.

High capacity transit investments take existing strong transit connections to the next level
in accessibility and priority on the roadway and at the signal – while shining a light on the
corridor in which it travels to improve safety, access and livability for current and future
riders. This type of service carries more transit riders more quickly, efficiently and
comfortably than local, regional and frequent service transit lines through both a level of
enhanced amenities and transit priority. Enhanced amenities refer to features that make
high capacity transit more efficient, convenient, and comfortable: vehicles that are larger
and allow boarding from all doors, transit centers and stations with near-level boarding,
and frequent service (striving for frequencies of 10 minutes or better during the peak
hours and 15 minutes during off peak hours). It also refers to transit centers and stations
with covered waiting shelters, benches, schedule and real-time bus and train arrival
information and special lighting. Other amenities could include ticket machines, restroom
facilities, bicycle parking (e.g., bicycle stations or bike & rides), civic art and commercial
services. Enhanced priority investments refer to dedicated tracks or lanes in the street
that improve speed and/or reliability, getting people to destinations faster and on-time.
High capacity transit operates on a fixed guideway or within an exclusive right-of-way on
tracks or in the street, to the greatest extent possible.

The region should continue to pursue coordinated partnerships in planning for and
investing in these major capital improvements that prioritize transit over other modes,
construct features that improve speed, reliability, and access to transit, and address
community needs and gaps. Adopted transit-supportive land use and transportation
policies and strategies, such as high-density and mixed-use zoning, reduced parking

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requirements, and affordable housing incentives are critical to ensuring a corridor is
ready for high capacity transit investment. To optimize and leverage transit supportive
land uses, alignments and station locations should be oriented towards existing and
future high density, mixed-use development and connect intermodal passenger facilities.
To this end, urban form and connectivity, redevelopment potential, market readiness,
public incentives and infrastructure financing should all be considered during the
corridor refinement and alternatives analysis phases of project development.

Transit Policy 8. Support expanded commuter rail and intercity transit service to
neighboring communities and other destinations outside the region.

Intercity passenger rail and bus service to communities outside of the region provides an
important connection to the regional transit network. Current travel patterns are showing
a rising demand for intercity transit service solutions for improving passenger rail in the
future in response to rising demand, while also balancing similarly increasing freight
service needs. The following corridors have a high likelihood to support intercity or
commuter rail service in the future: Portland-Newberg, Portland-Astoria, Portland-
California and Chicago to Seattle via Salt Lake City and Portland (formerly Amtrak
Pioneer). Metro, regional partners and corridor communities should consider right-of-
way preservation for these corridors and consider land use planning activities that focus
on transit-supportive development around potential future station areas.
Portland-Salem/Keizer-Eugene is the most promising corridor for expanding commuter
rail and intercity transit service travel times, reliability, frequency and connectivity with
and accessibility of regional and local transit, bicycle and pedestrian networks. There is
existing Amtrak passenger rail service on a more highly used freight corridor (Union
Pacific Mainline) and there is the potential for an alignment either extending or tying into
WES commuter rail service on a lightly used freight corridor (Oregon Electric Line) from
to Wilsonville to Salem, currently served by Wilsonville’s SMART and Salem’s Cherriots
today. All were evaluated in the 2010 Oregon Rail study as potential solutions for
improving intercity rail service on the corridor, but the alignment tying into WES
attracted more riders (by one to four percent). When developing inter-regional rail
service, this corridor alignment should take priority for improving passenger rail service
between Eugene and Portland in the nearer-term future.

In the future, a fast, frequent, reliable, and environmentally responsible high-speed transit
connection could serve as a catalyst to transform the Pacific Northwest. The Pacific
Northwest Corridor is an important intercity rail connection between Eugene, Oregon and
Vancouver, British Columbia. It is one of eleven corridors shown in Figure 3-29 identified
for improved inter-city rail connections and potential high-speed rail investments to
better connect communities across the U.S. Ultra-high-speed rail on the corridor should
complement and bolster the broader intercity passenger rail system – for instance,
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Amtrak Cascades could connect smaller cities (including Salem and Eugene nearer-term)
to the corridor and the regional hubs connected by it.
Figure 3-29 U.S. High speed intercity passenger rail network

Source: U.S. Department of Transportation (April 2016)

More work is needed to determine what partnerships, infrastructure investments and

finance strategies are needed to support improved intercity passenger service to
communities outside the region more broadly. Additional collaboration and funding are
needed to support the development of this level of service.

Transit Policy 9. Increase access to transit by improving pedestrian and bicycle connections
to and bicycle parking at transit stops and stations. Use new mobility services to improve
connections to high-frequency transit when walking, bicycling or local bus service is not an
option.
Improve pedestrian and bicycle access to and bicycle parking at transit stops and stations

People access transit via walking, bicycling, bus, rail, carpools, shared mobility (like Uber
and Lyft or Biketown) and private automobiles. In 2040 corridors, main streets and
centers, transit is supported by providing transit-supportive development and well-
connected street systems to allow convenient bicycle and pedestrian access. Providing
safe and direct walking and biking routes and crossings that connect to transit stops
ensures that transit services are fully accessible to people of all ages and abilities and

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 helps the transit network function at its highest level. At some point in their trip, all
transit riders are pedestrians first whether it is walking to the station, parking their bike
and walking to vehicle or walking from the park and ride to the bus or rail. The
environment where people walk to and from transit facilities is a significant part of the
overall transit experience. An unattractive or unsafe walking environment discourages
people from using transit, while a safer and more appealing pedestrian environment may
increase ridership. Likewise, high quality local and regional bicycle infrastructure
extends the reach of the transit network, allowing more people to access transit from
longer distances. Further, transit, pedestrian and bicycle travel benefit as improvements
are made to each of the modes.

Figure 3-30 depicts the region’s priorities for providing multi-modal access to the
region’s transit system. It prioritizes walking and biking to transit and deemphasizes
driving to transit. In select locations, park-and-ride facilities may provide vehicular access
to the high capacity or even frequent service network for areas that cannot be well-served
by local transit due to topography, street configuration, or lack of density.
Figure 3-30 Regional transit access priorities

• Improving pedestrian and bicycle access to transit stops and stations is accomplished
through filling sidewalk gaps within a mile and bicycle and trail network gaps within
three miles, integrating trail connections and shade trees, and providing pedestrian and
bicycle protected crossings. Additionally, amenities at stops and stations further support
people walking and bicycling to transit, including shelters, shade trees and seating;
bicycle repair stations, lockers, secured, covered bicycle parking and/or Bike and Rides;

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and co-located bike and scooter sharing facilities. Allowing bicycles on board transit also
helps expand active transportation connections, particularly the use of apps to let bicycle
riders know if a bus or train has bicycle space available.
Additionally, managing or pricing parking spaces and reducing the number of spaces that
developments near transit provide a safer, more active transportation-oriented
environment near stations. The Climate Friendly and Equitable Communities (CFEC) rules
require many cities in the region to reduce or eliminate parking requirements and
manage or price parking in areas with high levels of transit service).
Explore new ways to improve connections to high frequency transit

Advances in technology have given rise to new transportation services that make it easier
for people to share vehicles and have the potential to work alongside transit to
significantly extend the range and convenience of car-free trips in the region. Many of
these options, including ride-hailing and bike, e-bike, scooter, and car sharing, are
available and widely used in certain parts of the region. These new services can help
bridge the gap to first and last-mile high frequency and, particularly, high capacity transit
access. Improving connections and interactions between shared mobility and transit can
be accomplished by:
• Ensuring designated transit streets are designed and managed to prioritize transit and
shared travel. Ride-hailing and e-commerce delivery vehicles are using an increasing
amount of curb space in some congested areas. Agencies can manage the curbside to
prioritize ride-hailing services carrying more than one passenger and avoid conflicts
with transit vehicles.
• Dedicating space for shared mobility at transit stations. Accommodating bike share
stations or pods of car share vehicles at transit stops makes it easy for transit riders to
use these options. Setting aside space for pickups and drop-offs near stations can
make it more convenient for people to access options to transit, as well as improve
safety by reducing conflicts between modes. At stations with parking, reserving
premium spaces for carpools or shared vehicles can provide an incentive for travelers
to share trips instead of driving alone.
• Coordinating with shared mobility companies to support shared connections to transit
stations. Several communities already fund vanpools or operate shuttles to and from
transit stations. Similarly, public agencies can partner with microtransit or carsharing,
pooled ride-hailing services or dockless bike/scooter sharing companies to subsidize
or promote trips via these modes to transit stations. The City of Portland’s
Transportation Wallet, which offers credits that people can use to pay for transit and a
variety of new mobility services to residents in Parking Districts, affordable housing
sites, and new multi-family buildings. These programs allow people access to a suite of

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 options that can complement existing options or connect them to transit when the bus
or train only covers part of their journey.

Transit Policy 10. Use technologies to provide better, more convenient and efficient transit
service, including meeting the needs of people for whom conventional transit is not an
option.

People commuting to employment centers in more suburban areas rely on slower, often
infrequent buses or may not be served by existing bus service. Similarly, the region is
home to many people with disabilities who require specialized vehicles and point-to-
point service, as well as people who depend on transit but live in communities where
fixed-route service does not make sense. These people often rely on demand-response
transit or infrequent buses that provide slow service and are costly to operate.

New shared mobility models like microtransit could provide better service at lower cost
where we need to enhance service on high-ridership lines while piloting new ways to
provide transit (like microtransit or using new mobility services to connect to stations) in
communities that are challenging to serve with large buses traveling on fixed routes. As
these options continue to mature, agencies should look for opportunities to supplement
demand response and underperforming service with shared mobility. This could provide
better service for underserved and transit-dependent residents and increase resources
available to serve high-demand corridors. The growth in new mobility technologies also
includes new real-time fleet management and route optimization tools as well as trip
planning services and ride matching services that can help people identify a
transportation service that meets their needs or someone with whom they can share a
ride. These technologies can be used to increase the quality and/or productivity of
infrequent or high-cost services, or to help people find a service that meets their needs
when conventional transit isn’t available to them.

Making it easy to plan, book, and pay for trips, including across agency and even shared
mobility platforms, is one way to make transit more convenient for people riding.
Smartphone apps are now the most common way for people in the Portland region to
access information about their transportation options and are well-suited to provide the
type of real-time information that people need to coordinate trips while accounting for
potential transit delays. This is especially true for people accessing transit through amidst
the changing landscape of new mobility services in the region. TriMet’s Open Trip Planner
integrates data on transit routes, schedules and real-time arrivals and tracking; bicycling
and walking travel times; and shared mobility options to make it easy to plan multimodal
trips on an interactive map platform optimized for smartphones.

Other private travel information apps offer similar services; transit agencies can make
schedule and route information available in the format that these tools use to allow their

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services to how up in these apps. There are two important issues to consider when
integrating transit and shared mobility data:

• Ensuring that third-party apps use that data in a way that supports transit. The
companies that develop these apps often monetize transit data by showing
advertisements for ride-hailing services that show how much quicker a rider could
reach a destination by paying extra for those services. These advertisements can
draw people away from taking transit, and agencies should consider whether they
want to place conditions on the use of transit data by third parties.

• Maintaining access for the many people who can’t or don’t access apps or make
online payments, which can include many of the same travelers who rely on
transit. These travelers often need to overcome both cultural barriers (for
example, limited English proficiency and concerns about personal safety when
traveling in public) and technological ones (such as a lack of access to smart
phones or data plans that allow for easy online access to information from
anywhere) in order to access the increasing number of online travel information
and services.

Transit Policy 11. Make transit is affordable, especially for people with low incomes.

Ensuring that transit is affordable alleviates the cost of and encourages alternatives to
owning automobiles. It is therefore important to ensure that transit is affordable,
particularly for the riders that rely on it the most. The cost of transportation burdens
many households in the metropolitan region and is usually the second largest share of
household costs (after housing).

People of color, with limited English proficiency, with low-income, with disabilities, age
65 or older and 18 or younger are those most affected by transportation costs. C-TRAN
and TriMet offer reduced fares for youth, seniors, people on Medicare, and people with
low incomes. Most SMART buses are free – there is a fee for Dial-a-Ride service and for
the 1X to Salem which also offers a reduced fare. Broadening these programs to further
reduce or even eliminate some fares or offering other financial assistance that could be
applied to costs of fees would help alleviate cost-burden for those who rely on transit. One
way to do that is by making transit free for youth – a clear community priority identified
during the Get Moving 2020 transportation funding measure process.

Research has shown that people form opinions about transit early on, with early use
being a key indicator of ridership in the future. Removing barriers to acquiring reduced or
free transit fares can make it possible for individuals with limited access to documents,
identification, or internet to receive these benefits. Fare capping, an approach utilized by
TriMet’s Hop Fastpass, allows people to pay for a reduced monthly pass by the ticket

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rather than all at once up front. Programs like TriMet’s Access Transit, which provide
fares to non-profit and community-based organizations at lower to no cost to distribute to
clients, help to further increase the reach and accessibility of reduced fare programs. The
region should build partnerships with non-profit and human service providers to support
expanding these types of programs, disseminate more information about reduced fare
programs and work through ways in which these programs can be more effective. The
City of Portland’s BIKETOWN for All program is one example of how to increase
integration of free or reduced fare programs by including students receiving federal aid
(FAFSA) and people receiving food assistance (Oregon Trail Card, SNAP). This should also
include advocating in the state legislature and to the voters to increase, deepen, and
sustain long-term funding for programs which support keeping transit affordable for
riders.

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3.3.6 Regional freight network concept, vision and policies

Informing the regional framework for freight policy is the understanding that the
Portland –Vancouver region is a globally competitive international gateway and domestic
hub for commerce. The multimodal freight transportation network is a foundation for
economic activities, and we must strategically maintain, operate and expand it in a timely
manner to ensure a vital and healthy economy.

The Regional Freight Strategy addresses the needs for freight through-traffic as well as
regional freight movements, and access to employment and industrial areas, and
commercial districts. The Regional Freight Network Concept contains policy and strategy
provisions to develop and implement a coordinated and integrated freight network that
helps the region’s businesses attract new jobs and remain competitive in the global
economy. The transport and distribution of freight occurs via the regional freight
network, a combination of interconnected publicly and privately owned networks and
terminal facilities. The concept in Figure 3-31 shows the components of the regional
freight system and their relationships.
Figure 3-31 Regional freight network concept

Image shows a conceptual graphic of the freight network with different freight route classifications connecting
key freight hubs.

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Rivers, mainline rail, pipeline, air and truck routes and arterial streets and throughways
connect the region to international and domestic markets and suppliers beyond local
boundaries. Inside the region, throughways and arterial streets distribute freight moved
by truck to air, marine and pipeline terminal facilities, rail yards, industrial areas, and
commercial centers. Rail branch lines and heavy vehicle corridors connect industrial
areas, marine terminals and pipeline terminals to rail yards and truck terminals. Pipelines
transport petroleum products to and from terminal facilities.

[Link] Regional freight network policies

The Regional Freight Network Policies reflect the policy framework of the Regional
Freight Strategy. Specific actions that Metro, in partnership with cities, counties, agencies
and other stakeholders can take to implement the policies are identified in Chapter 8 of
the Regional Freight Strategy.

Policy 1 Plan and manage our multimodal freight transportation infrastructure using a
systems approach, coordinating regional and local decisions to maintain
seamless freight movement and access to industrial areas and intermodal
facilities.

Policy 2 Manage the region’s multimodal freight network to reduce delay, increase
reliability and efficiency, improve safety and provide shipping choices.

Policy 3 Better integrate freight issues in regional and local planning and
communication to inform the public and decision-makers on the importance
of freight and goods movement issues.

Policy 4 Pursue a sustainable multimodal freight transportation system that supports

the health of the economy, communities and the environment through clean,
green and smart technologies and practices.

Policy 5 Protect critical freight corridors and access to industrial lands by integrating
freight mobility and access needs into land use and transportation plans and
street design.

Policy 6 Invest in the region’s multimodal freight transportation system, including

road, air, marine and rail facilities, to ensure that the region and its
businesses stay economically competitive.

Policy 7 Eliminate fatalities and serious injuries caused by freight vehicle crashes with
passenger vehicles, bicycles and pedestrians, by improving roadway and
freight operational safety.

Policy 8 Adapt future freight system investments to emerging technologies and shifts
in goods movement, including the emergence of e-commerce and automated
delivery systems.
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Freight Policy 1. Plan and manage our multimodal freight transportation infrastructure
systems approach, coordinating regional and local decisions to maintain seamless freight
movement and access to industrial areas and intermodal facilities.

A comprehensive, systems approach is central to planning, managing, and using the

region’s multimodal freight transportation infrastructure. This approach provides a
strong foundation for addressing core throughway network bottlenecks, recognizing and
coordinating both regional and local decisions to maintain the flow and access for freight
movement that benefits all.

The transport and distribution of freight occurs via a combination of interconnected

publicly and privately-owned networks and terminal facilities.

Freight Policy 2. Manage the region’s multimodal freight network to reduce delay and
increase reliability and efficiency, improve safety and provide shipping choices.

The 2005 Cost of Congestion to the Economy of the Portland Region Study reported that
the greater Portland region has a higher-than-average dependency on traded sector
industries, particularly computer and electronic products, wholesale distribution services,
metals, forestry, wood, and paper products, and publishing; business sectors that serve
broader regional, national, and international markets and bring outside dollars into the
region’s economy.

These industries depend on a well-integrated and well-functioning international and

domestic transportation system to stay competitive in a global economy.

As an international gateway and domestic freight hub, the region is particularly

influenced by the dynamic trends affecting distribution and logistics. As a result of these
global trends, U.S. international and domestic trade volumes are expected to grow at an
accelerated rate. The value of trade in Oregon is expected to double by 2040, to $730
billion. 35 The region’s forecasted population and job growth – an additional 917,000
residents and 597,000 jobs to be added between 2010 and 2040 36 – along with the
associated boost in the consumption of goods and services are significant drivers of
projected increases in local freight volume.

This policy is the first step to improved freight and goods movement operations on the
existing system and includes preservation, maintenance and operations-focused projects

35
Federal Highway Administration, Freight Analysis Framework version 3.4, 2013
36
Metro 2040 growth forecast. Represents forecasted population and jobs within 4-county area (Multnomah,
Clackamas, Washington and Clark counties).

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and associated planning and coordinating activities. It focuses on using the system we
have more effectively.

It is critical to maximize system operations and create first-rate multimodal freight

networks that reduce delay, increase reliability, maintain, and improve safety and provide
cost-effective choices to shippers. In industrial and employment areas, the policy
emphasizes providing critical freight access to the interstate highway system to help the
region’s businesses and industry in these areas remain competitive. Providing access and
new street connections to support industrial area access and commercial delivery
activities and upgrading main line and rail yard infrastructure in these areas are also
emphasized.

To carry out an overall policy of reducing delay and increasing reliability, it will be
necessary to expand the types of programs and amounts of funding for freight
transportation infrastructure to adequately fund and sustain investment in the region’s
multimodal freight transportation network in order to ensure that the region and its
businesses stay economically competitive.

Freight Policy 3. Better integrate freight issues in regional and local planning and
communication to inform the public and decision-makers on the importance of freight and
goods movement issues.

To gain public support for projects and funding of freight initiatives, and to better inform
elected officials when making land use and transportation decisions, a program that
informs the public is required.

Freight impacts should be considered in all modal planning and funding, policy and
project development, implementation, and monitoring. This also means better informing
the region’s residents and decision makers about the importance of freight movement on
daily life and economic well-being. Metro will work with its transportation partners to
improve the level of freight information available to decision-makers, the business
community, and the public.

Freight Policy 4. Pursue a sustainable multimodal freight transportation system that

supports the health of the economy, communities and the environment through clean,
green and smart technologies and practices.

This policy deals with traditional nuisance and hot spot issues associated with
“smokestack and tailpipe” problems, but it also recognizes the many current
contributions and new opportunities for the evolving green freight community to be part
of the larger environmental and economic solution set required in these times, including
reducing greenhouse gas emissions.

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It is important to ensure that the multimodal freight transportation network supports the
health of the economy and the environment by pursuing clean, green and smart
technologies and practices. Details of the most promising innovations and technologies
have been developed as part of the Regional Freight Strategy’s Technology for Sustainable
Freight Transport, as identified in Chapter 6 of the strategy.

Freight Policy 5. Protect critical freight corridors and access to industrial lands by integrating
freight mobility and access needs into land use and transportation plans and street design.

This policy targets land use planning and design issues that can affect the ability of freight,
goods movement and industrial uses to live harmoniously with their neighbors. Freight-­‐
sensitive land use planning includes everything from long-range aspirations for freight
and industrial lands to short-term and smaller scale design and access issues.

It is important to integrate freight mobility and access needs in land use decisions to
ensure the efficient use of prime industrial lands, protection of critical freight corridors
and access for commercial delivery activities. This includes improving and protecting the
throughway interchanges that provide access to major industrial areas, as well as the last-
mile arterial connections to both current and emerging industrial areas and terminals.

Freight Policy 6. Invest in the region’s multimodal freight transportation system, including
road, air, marine and rail facilities, to ensure that the region and its businesses stay
economically competitive.

This policy focuses on planning and building capital projects and developing the funding
sources, partnerships, and coordination to implement them.

It is important to look beyond the roadway network to address needs of the multimodal
and intermodal system that supports the regional economy. As described in the Regional
Freight Strategy, freight rail capacity is adequate to meet today’s needs but as rail traffic
increases additional investment will be needed in rail mainline, yard and siding
capacity. 37 Whenever right-of-way is considered for multiple uses such as freight rail,
passenger rail and trails, analysis must include long-term needs for existing freight and
freight rail expansion to ensure that necessary future capacity is not compromised.

In addition, navigation channel depth on the Columbia River continues to be the limiting
factor on the size, and therefore the number, of ships that call on the Portland-Vancouver
Harbor.

37
Port of Portland, Port of Portland Rail Plan, 2013.

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Freight Policy 7. Eliminate fatalities and serious injuries caused by freight vehicle crashes
with passenger vehicles, bicycles and pedestrians, by improving roadway and freight
operational safety.

This policy and the potential design solutions focuses on addressing the issue of
eliminating fatalities and serious injuries due to freight vehicle crashes with passenger
vehicles, bicycles and pedestrians.

Freight Policy 8. Adapt future freight system investments to emerging technologies and
shifts in goods movement, including the emergence of e-commerce and automated delivery
systems.

This policy is focused on addressing the continued growth in e-commerce and delivery
trips and the need for industrial land that provides for an increase in distribution centers
and fulfillment centers.

[Link] Regional freight network classifications and map

The Regional Freight Network map, shown in Figure 3-32 applies the regional freight
network concept on the ground to identify the transportation networks and facilities that
serve the region and the state’s freight mobility needs.

The regional freight network has a functional hierarchy like that of the regional motor
vehicle network. To show the continuity of the freight system in both Oregon and
Washington state, the map shows the freight routes in Clark County, north of the
Columbia River and rural freight routes designated by Clackamas and Washington
counties that connect to the regional freight network designated within the metropolitan
planning area boundary. The Regional Freight Network map also includes six inset maps
(brown dotted line boxes) that focus on the key intermodal facilities (marine terminals,
rail yards and pipeline facilities) and rail lines to highlight the importance of the rail
network and have better visibility for the rail lines.

The different functional elements of the regional freight network are:

• Main line rail – Class I rail lines (e.g., Union Pacific and Burlington Northern/Santa Fe).
• Branch line rail – Non-Class 1 rail lines, including short lines (e.g., Portland and
Western Railroad).
• Main roadway routes – Designated freights routes that are freeways and highways
that connect major activity centers in the region to other areas in Oregon or other
states throughout the U.S., Mexico, and Canada.
• Regional Intermodal Connectors – Roads that provide connections between major
rail yards, marine terminals, airports, and other freight intermodal facilities, and the
freeway and highway system. Marine terminals, truck to rail facilities, rail yards,
pipeline terminals, and air freight facilities are the primary types of intermodal

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 terminals and businesses that the tier 1 and NHS intermodal connectors are serving in
the Portland region. An example of a NHS intermodal connector is Marine Drive
between the marine terminals (Terminal 5 and 6) and I-5, which in 2014 had over
4,100 average daily trucks. Another NHS intermodal connector is Columbia Boulevard
between I-5 and OR 213 (82nd Avenue) which had over 3,500 average daily trucks and
is a vital freight connection between the air-freight terminal at Portland International
Airport and both I-5 and I-205. These Regional Intermodal Connectors are carrying
many more trucks than the typical road connectors on the Regional Freight Network
map. They are also of critical importance for carrying commodities that are being
exported from and imported into the state and across the country.
• Roadway connectors – Roads that connect other freight facilities, industrial areas, and
2040 centers to a main roadway route.
• Marine facilities – A facility where freight is transferred between water-based and
land-based modes.
• Rail yards – A rail yard, railway yard or railroad yard is a complex series of railroad
tracks for storing, sorting, or loading and unloading, railroad cars and locomotives.
Railroad yards have many tracks in parallel for keeping rolling stock stored off the
mainline, so that they do not obstruct the flow of traffic.

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Figure 3-32 Regional freight network map

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3.3.7 Regional active transportation network vision

A complete and welcoming active transportation network allows people of all ages,
abilities, income levels and backgrounds to access transit, walk and bike easily and safely
for many of their daily needs. The Regional Active Transportation Network vision was
developed in the Regional Active Transportation Plan and starts with the understanding
that integrated, complete and seamless regional pedestrian, bicycle and transit networks
are necessary to achieve local and regional transportation goals, aspirations and targets.

Active transportation is human-powered transportation that engages people in healthy

physical activity while they travel from place to place. People walking, bicycling, the use of
strollers, wheelchairs /mobility devices, skateboarding, and rollerblading are active
transportation.

Active transportation supports public transportation because most trips on public

transportation include walking or bicycling. Many people in the region incorporate
walking, transit and riding a bicycle into daily travel. The regional active transportation
network concept focuses on the integration of bicycle, pedestrian and transit travel and
connecting local pedestrian and bicycle networks into a coordinated and complete
regional network.

The regional active transportation network is composed of pedestrian-bicycle districts

and regional bikeways and walkways that connect to and serve high capacity and
frequent transit. Pedestrian-bicycle districts are urban centers and station communities.
The following ten guiding principles were developed in the Regional Active
Transportation Plan to guide development of the regional active transportation network.
1. Bicycling, walking, and transit routes are integrated and connections to regional
centers and regional destinations are seamless.
2. Routes are direct, form a complete network, are intuitive and easy-to-use and are
always accessible.
3. Routes are safe and comfortable for people of all ages and abilities and welcoming
to people of all income levels and backgrounds.
4. Routes are attractive and travel is enjoyable.
5. Routes are integrated with nature and designed in a habitat and environmentally
sensitive manner.
6. Facility designs are context sensitive and seek to improve safety and balance the
needs of all transportation modes.
7. Increases corridor capacity and relieves strain on other transportation systems.

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 8. Ensures access to regional destinations for people with low incomes, people of
color, people living with disabilities, people with low-English proficiency, youth
and older adults.
9. Measurable data and analyses inform the development of the network and active
transportation policies, including metrics for air quality and safety.
10. Implements regional and local land use and transportation goals and plans to
achieve regional active transportation modal targets.

Developing the regional active transportation network according to the guiding principles
will provide a well-connected network of complete streets and off-street paths integrated
with transit and prioritizing safe, convenient and comfortable pedestrian and bicycle
access for all ages and abilities. This will help make walking and bicycling the most
convenient and enjoyable transportation choices for short trips and provide access to
regional destinations, jobs, regional and town centers, schools, parks and essential daily
services. It will also increase walking and bicycling access for underserved populations
and ensures that the regional active transportation network equitably serves all people. 38

[Link] Regional Active Transportation Plan (2014)

The Regional Active Transportation Plan (ATP) and the Designing Livable Streets and
Trails Guide provides recommended design guidance for trails/multi-use paths, and low
volume and high-volume streets. The appropriateness of each design is based on adjacent
motor vehicle speeds and volumes. While it may be difficult for transportation agencies to
provide a comfortable facility on some arterial streets these routes should be improved
over time, through better designs and lower auto speeds accompanying a more compact
urban form. In the short-term providing low-volume routes for bicycle travel will help
increase the number of people riding bicycles.

Arterial streets typically provide direct routes that connect to centers and daily
destinations. Cyclists tend to travel on arterial streets when they want to minimize travel
time or access destinations along them. Oregon State statutes and administrative rules
establish that bicycle facilities are required on all collector and higher classification
arterial streets when those roads are constructed or reconstructed.

Low-volume streets often provide access to centers and daily destinations as well as
residential neighborhoods, complementing bicycle facilities located on arterial streets.
Though these routes are often less direct than arterials, attributes such as slower speeds
and less noise, exhaust and interaction with vehicles, including trucks and buses, can

38
Underserved populations include low income, low-English proficiency, minority, solder adults (over 65) and
youth (under 18).

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make them more comfortable and appealing to many cyclists. Recent research suggests
that providing facilities on low-volume streets may be a particularly effective strategy for
encouraging new bicyclists, which helps increase bicycle mode share in the region.

Regional trails typically provide an environment removed from vehicle traffic and
function as an important part of the larger park and open space system in a community
and in the region. Trails often take advantage of opportunities for users to experience
natural features such as creeks, rivers, forests, open spaces and wildlife habitats, as well
as historic and cultural features, with viewpoints and interpretive opportunities. In the
highest use areas, regional trails should be designed to provide separation between
bicyclists and pedestrians.

Off-street facilities also complement on-street bikeways, providing access to 2040 Target
Areas while providing a travel environment with fewer intersecting streets than on-street
bikeways, thereby allowing for faster travel times. This makes off-street facilities
especially attractive for serving long distance bicycle trips. Similar to low-volume streets,
off-street facilities provide an environment more removed from vehicle traffic, which is
appealing to families and new or less confident cyclists.

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3.3.8 Regional bicycle network concept and policies

Residents in the region have long recognized bicycling as an important form of

transportation. The RTP elevates the importance of supporting bicycle travel because of
the mobility, economic, environmental, health, and land use benefits it provides.

Sidewalks, trails, bicycle facilities and transit cannot achieve their full potential if they are
treated as stand-alone facilities – they must be planned and developed as part of a
complete network.

Section 3.08.140 of the Regional Transportation Functional Plan (RTFP), the

implementing plan of the Regional Transportation Plan (RTP), requires that local
jurisdictions include a bicycle plan to achieve the following:
• an inventory of existing facilities that identifies gaps and deficiencies in the bicycle
system;
• an evaluation of needs for bicycle access to transit and essential destinations,
including direct, comfortable and safe bicycle routes and secure bicycle parking;
• a list of improvements to the bicycle system;
• provision for bikeways along arterials, collectors and local streets, and bicycle parking
in centers, at major transit stops, park-and-ride lots and institutional uses; and
• provision for safe crossing of streets and controlled bicycle crossing on major
arterials.

[Link] Regional bicycle network concept

The regional bicycle network concept includes:

• A bicycle parkway in each of the region’s Mobility Corridors within the MPA boundary
to provide transportation options in these corridors.
• A network of bicycle parkways spaced approximately every two miles, that connect to
and/or through every town and regional center, many regional destinations and to
most employment and industrial land areas and regional parks and natural areas (all
areas are connected by regional bikeways, the next functional class of bicycle routes).
• A network of regional bikeways that connect to the bicycle parkways, providing an
interconnected regional network. Local bikeways connect to bicycle parkways and
regional bikeways.
• Regional bicycle districts. Regional and town centers and station communities were
identified as bicycle districts, as well as pedestrian districts.

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Figure 3-33 shows the components of the regional bicycle network concept and their
relationship to adjacent land uses. A region-wide bicycle network would be made up of
on-street and off-street routes with connections to transit and other destinations.

Figure 3-33 Regional bicycle network concept

Image shows a graphic of bicycle routes connecting key regional destinations and centers. The 2040 Growth
Concept sets forth a vision for making bicycling safe, convenient, and enjoyable to support riding a bicycle as a
legitimate travel choice for all people in the region. The Regional Transportation Plan supports this vision with a
region-wide network of on-street and off-street bicycle facilities integrated with transit and regional destinations.

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[Link] Regional bicycle network policies

This section describes the policy framework of the Regional Bicycle Network Concept.
Specific actions that Metro, in partnership with cities, counties, agencies and other
stakeholders can take to implement the policies are identified in the Regional Active
Transportation Plan.

Policy 1 Make bicycling the most convenient, safe and enjoyable transportation
choice for short trips of less than three miles.

Policy 2 Complete an interconnected regional network of bicycle routes and districts

that is integrated with transit and nature and prioritizes seamless, safe,
convenient and comfortable access to urban centers and community places,
including schools and jobs, for all ages and abilities.

Policy 3 Complete a green ribbon of bicycle parkways as part of the region’s

integrated mobility strategy.

Policy 4 Improve bike access to transit and community places for people of all ages
and abilities.

Policy 5 Ensure that the regional bicycle network equitably serves all people.

Bicycle Policy 1. Make bicycling the most convenient, safe and enjoyable transportation
choice for short trips of less than three miles.

The average length of a bicycle trip in the region is about three miles. 39 Nearly 45 percent
of all trips made by car in the region are less than three miles, and 15 percent are less
than one mile. 40 With complete networks, education, encouragement and other
programs, many short trips made by car could be replaced with bicycle or pedestrian
trips, increasing road capacity and reducing the need to expand the road system.
Technologies such as bike-sharing provide a new toolkit to make bicycling even easier for
short trips.

In 2011, the Federal Transit Administration (FTA) established a formal policy on the
eligibility of pedestrian and bicycle improvements for FTA funding and defined the
catchment area for pedestrians and bicyclists in relation to public transportation stops
and stations. The policy recognized that bicycle and pedestrian access to transit is critical

39
2011 Oregon Household Activity Survey.
40
2011 Oregon Household Activity Survey. Vehicle trips by length for trips wholly within Clackamas, Multnomah,
Washington and Clark Counties.

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and defined a three mile catchment area for bicycle improvements and a half mile
catchment area for pedestrian improvements. 41

Bicycle travel holds huge potential for providing transportation options that can replace
trips made by auto, especially for short trips. Bicycle trips made in the region for all
purposes grew by 190 percent since 1995. 42 When bicycling is safe, comfortable,
convenient and enjoyable, people have the option of making some of those short trips by
bicycle.

Actions to implement this policy can be found in Chapter 12 of the 2014 Regional Active
Transportation Plan.

Bicycle Policy 2. Complete an interconnected regional network of bicycle routes and districts
that is integrated with transit and nature and prioritizes seamless, safe, convenient and
comfortable access to urban centers and community places, including schools and jobs for
all ages and abilities.

A well-connected bicycle network does not have gaps and is comfortable and safe for
people of all ages and abilities. Regional bicycle routes connect to and through urban
centers increasing access to transit, businesses, schools, and other destinations. Regional
trails and transit function better when they are integrated with on-street bicycle routes.
Wherever possible, routes should connect to and through nature and include trees and
other green elements. Designing the network for universal access will make the regional
bicycle network accessible and comfortable for all ages and abilities. The Regional
Transportation Functional (RTFP) plan requires local Transportation System Plans
include an interconnected network of bicycle routes.

Bicycle Policy 3. Complete a green ribbon of bicycle parkways as part of the region’s
mobility strategy.

Regional bicycle parkways form the backbone of the regional bicycle system, connecting
to 2040 activity centers, downtowns, institutions and greenspaces within the urban area
while providing an opportunity for bicyclists to travel efficiently with minimal delays. In
effect, the bicycle parkway concept mainstreams bicycle travel as an important part of the
region’s integrated mobility strategy. This concept emerged from work by the Metro Blue
Ribbon Committee for Trails as part of the broader Connecting Green Initiative in 2007-
09 and further developed in the Regional Active Transportation Plan adopted in 2014.

41
Final Policy Statement on the Eligibility of Pedestrian and Bicycle Improvements Under Federal Transit Law
42
2011 Oregon Household Activity Survey.

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Key experiential aspects that bike parkways embody:
• A green environment with natural features such as trees or plantings (some will
already be green, while others will be made greener as part of bike parkway
development)
• Comfort and safety provided by protection from motorized traffic
• Large volumes of cyclists traveling efficiently with minimal delays

The bicycle parkway also connects the region to neighboring communities, other
statewide trails, and natural destinations such as Mt Hood, the Columbia River Gorge, and
the Pacific Ocean.

Figure 3-34 illustrates this policy concept in the context of the regional bicycle parkway
concept.

Figure 3-34 Bicycle parkway concept

Image shows a graphic illustrating bicycle parkways connecting key destinations. A bicycle parkway serves as a
green ribbon connecting 2040 activity centers, downtowns, institutions, and greenspaces within the urban area.

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The experience of the cyclist will be optimized to such a high level that people will clearly
know when they are riding on a bicycle parkway. The specific design of a bike parkway
will vary depending on the land use context within which it passes through. The facility
could be designed as an off-street trail along a stream or rail corridor, a cycle track,
protected, or physically separated bicycle lane along a main street or town center, or a
bicycle boulevard through a residential neighborhood. Priority treatments will be given to
cyclists (e.g., signal timing) using the bike parkway when they intersect other
transportation facilities, and connections to/from other types of bicycle routes will be
intuitive. The Regional Active Transportation Plan provides design guidance on the
development of bicycle parkways.

Bicycle Policy 4. Improve bike access to transit and to community places for people of all
ages and abilities.

Public transit and bicycling are complementary travel modes. Effectively linking bicycling
with transit increases the reach of both modes. It allows longer trips to be made without
driving and reduces the need to provide auto park-and-ride lots at transit stations.

Transit provides a fast and comfortable travel environment between regional

destinations that overcomes barriers to bicycling (hills, distance, and streets without
bikeways); while bicycling provides access from the front door to a transit station, is
faster than walking and can sometimes eliminate the need to transfer between transit
vehicles.

A key component of the bike-transit connection is bicycle parking at transit stations and
stops. Bike-transit facilities provide connections between modes by creating a “bicycle
park and ride.” Both TriMet and SMART currently provide bicycle parking and storage at
many transit stations and stops. TriMet, with input from regional stakeholders, has
developed Bicycle Parking Guidelines. The guidelines consider station context and
regional travel patterns and are focused on three major factors for parking: location,
amount and design. The guidelines will help TriMet, and local jurisdictions determine the
appropriate location, size and design of large-scale bike-parking facilities, including Bike-
Transit Facilities. The Regional Transportation Functional Plan (RTFP)requires that local
transportation system plans evaluate the needs for bicycle access to transit, including
secure bicycle parking.

Bicycle Policy 5. Ensure that the regional bicycle network equitably serves all people.

All people in the region, regardless of race, income level, age or ability should enjoy access
to complete and safe walking, bicycling and transit networks and the access they provide
to essential destinations, including schools and jobs. Currently the regional active
transportation network is incomplete in many areas of the region, including areas with

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low-income, minority and low-English proficiency populations. Transportation is the
second highest household expense for the average American; providing transportation
options in areas with low-income populations helps address transportation inequities.
Future planning, design and construction of the networks must include consideration of
the benefits and burdens of transportation investments to underserved and
environmental justice populations. In addition to infrastructure, technologies such as bike
sharing increase opportunities for all residents to bicycle. In Portland, the “Biketown for
All”” program provides discounted memberships, free helmets, and bike safety education
to low-income people.

[Link] Regional bicycle network functional classifications and map

This section describes the regional bicycle network functional classifications shown on
Figure 3-35, the Regional Bicycle Network. Click on 2023 for online zoomable version of
map.

The regional bicycle network is composed of on street and off-street bikeways that serve
the central city, regional centers, town centers, and other 2040 Target Areas, providing a
continuous network that spans jurisdictional boundaries. Figure 3-35 is a functional
classification map illustrating how regional bicycle routes and districts work together to
form a comprehensive network that would allow people to bike to transit, schools,
employment centers, parks, natural areas, and shopping.

The regional bicycle network has a functional hierarchy like that of the regional motor
vehicle network. Figure 3-35 provides a vision for a future bicycle network; for a map of
current bicycle facilities in the region, refer to Chapter 4.

The different functional elements of the regional bicycle network are:

• Regional Bicycle Parkways are spaced approximately every two miles in a
spiderweb-grid pattern, and connect to and through every urban center, many
regional destinations and to most employment and industrial land areas, regional
parks and natural areas. Each Mobility Corridor within the urban area has an
identified bicycle parkway. Bicycle parkways were identified as routes that currently
serve or will serve higher volumes of bicyclists and provide important connections to
destinations.
• Regional Bikeways provide for travel to and within the Central City, Regional
Centers, and Town Centers. Regional bikeways can be any type of facility, including
off-street trails/multi-use paths, separated in-street bikeways (such as buffered
bicycle lanes) and bicycle boulevards. On-street Regional Bikeways located on arterial
and collector streets are designed to provide separation from traffic.
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• Local Bikeways are not identified as regional routes. However, they are very
important to a fully functioning network. They are typically shorter routes with less
bicycle demand and use than regional routes. They provide for door-to-door bicycle
travel.
• Bicycle Districts (and Pedestrian Districts) include the Portland Central City,
Regional and Town Centers and Station Communities. A bicycle district is an area with
a concentration of transit, commercial, cultural, educational, institutional and/or
recreational destinations where bicycle travel is intended to be attractive, comfortable
and safe. Bicycle districts are also areas with current or planned high levels of bicycle
activity. All bicycle routes within bicycle districts are considered regional and are
eligible for federal funding. Bicycle facilities in bicycle districts should strive to be
developed consistent with the design guidance described in Chapter 9.
Which areas are designated as bicycle districts should be considered further in future
Regional Transportation Plan and ATP updates. For example, areas around bus stops with
high ridership should be evaluated as potential bicycle districts (light rail station areas
are currently identified as bicycle districts); some Main Streets on the regional network
may be considered for expansion as bicycle districts, as well as other areas.
• Bike-Transit Facilities are often referred to as Bike & Rides and are generally located
at transit centers and stations and provide secure, protected large-scale bike parking
facilities. Some facilities may include additional features such as showers, lockers, trip
planning and bicycle repair. These facilities have been built at transit centers and MAX
stations throughout the region– including in Wilsonville, Hillsboro, Beaverton,
Portland, and Clackamas County.

Bicycle Parkways and Regional Bikeways typically follow arterial streets but may also be
located on collector and low-volume streets. On-street bikeways should be designed using
a flexible “toolbox” of bikeway designs, including bike lanes, cycle tracks, protected and
physically separated bicycle lanes, on-shoulder bikeways, shared roadway, wide outside
lanes and bicycle priority treatments such as bicycle boulevards, also known as
Neighborhood Greenways.

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Figure 3-35 Regional bicycle network map

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3.3.9 Regional pedestrian network concept and policies

Walking contributes to a healthy lifestyle and supports vibrant local economies. Every
trip begins or ends with at least a short walk. Transit is integrated with walking.
However, while everyone walks, walking is not a safe or convenient option for everyone
in the region. Traffic crashes involving people walking often end in a death or severe
injury and pedestrian deaths are rising.

Many streets are not ADA-compliant, sidewalk gaps remain on busy arterial roadways
and along bus routes, safe places to cross the street can be few and far between, and lack
of street lighting and other gaps make it dangerous and difficult to walk, especially for
older adults, children and people with disabilities. In marginalized communities, lack of
safe walking routes can be worse.

In the Regional Pedestrian Network Vision, walking is safe and convenient. Section
3.08.130 of the Regional Transportation Functional Plan (RTFP) requires that local
jurisdictions include a pedestrian plan to achieve the following:
• Sidewalks along all arterials, collectors and most local streets.
• Direct and safe pedestrian routes to transit and other essential destinations.
• Provision of safe crossings of streets and controlled pedestrian crossings on major
arterials.
• Safe, direct and logical pedestrian crossings at all transit stops where practicable.
• Crossings over barriers such as throughways, active rail-lines and rivers provided at
regular intervals following regional connectivity standards.
• Regional multi-use trails and walking paths are completed.

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[Link] Regional pedestrian network concept

The Regional Pedestrian Network Concept describes a well-connected grid of streets and
multi-use paths connecting to and intersecting through regional and town centers,
employment areas, station communities, parks and natural areas and connecting to
transit and essential destinations.

Figure 3-36 shows the components of the regional pedestrian network and their
relationship to adjacent land uses.

Figure 3-36 Regional pedestrian network concept

Image shows a graphic of pedestrian routes connecting key regional destinations and centers. The 2040 Growth
Concept sets forth a vision for making walking safe, convenient, and enjoyable to support walking as a legitimate
travel choice for all people in the region. The Regional Transportation Plan supports this vision with a region-wide
network of on-street and off-street pedestrian facilities integrated with transit and regional destinations.

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[Link] Regional pedestrian network policies

Regional pedestrian policies help achieve the Regional Pedestrian Network Vision.
Specific actions that Metro, in partnership with cities, counties, agencies and other
stakeholders, can take to implement the policies are identified in the Regional Active
Transportation Plan.

Policy 1 Make walking the most convenient, safe and enjoyable transportation choice
for short trips of less than one mile.

Policy 2 Complete a well-connected network of pedestrian routes and safe street

crossings that is integrated with transit and nature that prioritize seamless,
safe, convenient and comfortable access to urban centers and community
places, including schools and jobs, for all ages and abilities.

Policy 3 Create walkable downtowns, centers, main streets and station communities
that prioritize safe, convenient and comfortable pedestrian access for all ages
and abilities.

Policy 4 Improve pedestrian access to transit and community places for people of all
ages and abilities.

Pedestrian Policy 1. Make walking the most convenient, safe and enjoyable transportation
choice for short trips of less than one mile.

In addition to being the most basic form of transportation, walking is an important form
of exercise and is the most popular recreational activity in Oregon. 43 The average length
of a walking trip in the region is about half a mile. Today 15 percent of trips made in an
auto are less than one mile. 44 Many of these trips could be made by walking if it were
convenient, safe and enjoyable. Fully implementing regional and local plans will help
make this possible.

In 2011, the Federal Transit Administration (FTA) established a formal policy on the
eligibility of pedestrian and bicycle improvements for FTA funding and defined the
catchment area for pedestrians and bicyclists in relation to public transportation stops
and stations. The policy recognized that bicycle and pedestrian access to transit is critical
and defined a three-mile catchment area for bicycle improvements and a half mile
catchment area for pedestrian improvements. 45

43
Oregon's 2017 Statewide Outdoor Recreation Survey shows that 83 percent of Oregonians walk on local
streets and sidewalks for recreation, making this the most popular recreational activity in the state.
44
2011 Oregon Household Activity Survey.
45
Final Policy Statement on the Eligibility of Pedestrian and Bicycle Improvements Under Federal Transit Law

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Ensuring all gaps and deficiencies on the regional pedestrian network have projects
identified in the Regional Transportation Plan and including wayfinding, street markings,
lighting and other elements that enhance connections and make the pedestrian network
consistent, integrated, and easy to navigate are key elements to implementing this policy.
The Regional Transportation Functional Plan (RTFP) includes specific requirements in
the Pedestrian and Transit System Design sections.

Actions to implement this policy can be found in Chapter 12 of the 2014 Regional Active
Transportation Plan.

Pedestrian Policy 2. Complete a well-connected network of pedestrian routes, including safe

street crossings, integrated with transit and nature that prioritize seamless, safe, convenient
and comfortable access to urban centers and community places, including schools and jobs,
for all ages and abilities.

A well-connected high-quality pedestrian environment facilitates walking trips by

providing safe and convenient access to essential destinations. The Regional Pedestrian
Network provides the plan for well-connected pedestrian routes and safe street crossings
to provide access to transit and essential daily needs. The Regional Transportation
Functional Plan (RTFP) requires that local Transportation System Plans include an
interconnected network of pedestrian routes.

Section 3.08.130 of the Regional Transportation Functional Plan (RTFP) includes the
requirements to provide a well-connected pedestrian system, and Oregon State statutes
and administrative rules establish that pedestrian facilities are required on all collector
and higher classification streets when those roads are built or reconstructed. Exceptions
are provided where cost is excessively disproportionate to need or where there is an
absence of need due to sparse population or other factors.

Priority should be given to filling gaps and providing safe crossings of the busiest streets
with transit and other essential destinations. Deficient facilities in areas of high walking
demand are considered gaps.

Pedestrian Policy 3. Create walkable downtowns, centers, main streets and station
communities that prioritize safe, convenient and comfortable pedestrian access for all ages
and abilities.

All centers and station areas are Regional Pedestrian Districts. The central city, regional
and town centers, main streets and light rail station communities are areas where high
levels of pedestrian activity are prioritized. In these areas, sidewalks, plazas and other
public spaces are integrated with civic, commercial and residential development. They are
often characterized by compact mixed-use development served by transit. These areas
are defined as pedestrian districts in the RTP.

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Walkable areas should be designed to reflect an urban development and design pattern
where walking is safe, convenient and enjoyable. These areas are characterized by
buildings oriented to the street and boulevard-type street design features, such as wide
sidewalks with buffering from adjacent motor vehicle traffic, marked street crossings at
all intersections with special crossing amenities at some locations, special lighting,
benches, bus shelters, awnings and street trees. All streets within these areas are
important pedestrian connections. Sections 3.08.120 (B) (2) and 3.08.130 (B) list
requirements for pedestrian districts and new development near transit.

Pedestrian Policy 4. Improve pedestrian access to transit and community places for people
of all ages and abilities.

Public transportation use is fully realized only with safe and convenient pedestrian and
bicycle connections, especially safe crossings and facilities that connect stations or bus
stops to surrounding areas or that provide safe and attractive waiting areas. Improving
walkway connections between office and commercial districts and surrounding
neighborhoods provides opportunities for residents to walk to work, shopping or to run
personal errands. Buildings need to be oriented to the street and be well connected to
sidewalks. Safe routes across parking lots need to be provided. This reduces the need to
bring an automobile to work and enhances public transportation and carpooling as
commute options. The Regional Transportation Functional Plan (RTFP) requires that local
Transportation System Plans include an evaluation of needs for pedestrian access to
transit for all mobility levels, including direct, comfortable and safe pedestrian routes.

Pedestrian access along transit-mixed use corridors is improved with features such as
wide sidewalks, reasonably spaced marked crossings and buffering from adjacent motor
vehicle traffic.

Pedestrian Policy 5. Ensure that the regional pedestrian network equitably serves all people.

All people in the region, regardless of race, income level, age or ability should enjoy access
to the region’s walking and transit networks and the access they provide to essential
destinations, including schools and jobs. Currently the regional pedestrian network is
incomplete in many areas of the region, including areas where people with low-incomes,
people of color and people with language isolation live. Transportation is the second
highest household expense for the average American; providing transportation options in
areas with low-income populations helps address transportation inequities.

Section 3.08.120[C] of the Regional Transportation Functional Plan (RTFP) specifies that
the needs of youth, seniors, people with disabilities and environmental justice
populations including people of color and people with low incomes must be considered
when planning transit.

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Regional and local planning, design and construction of the networks must include
consideration of the benefits and burdens of transportation investments to underserved
and environmental justice populations and continue to collect data and monitor
performance in accordance with section 3.08.010 of the Regional Transportation
Functional Plan.

Investment programs should set priorities for sidewalk improvements to and along major
transit routes and communities where physically or economically disadvantaged
populations live.

[Link] Regional pedestrian network classifications and map

This section describes the regional pedestrian network functional classifications shown
on Figure 3-37, the Regional Pedestrian Network. The regional pedestrian network
mirrors the regional transit network reflecting the important relationship of a complete
walking network and transit. Frequent transit routes and regional arterials comprise
regional pedestrian streets. Regional trails are also part of the regional pedestrian
network. Centers and station areas are regional pedestrian districts and include all streets
of all functional classifications and paths within their boundaries.

The regional pedestrian network has a functional hierarchy like that of the regional motor
vehicle network. Figure 3-37 provides a vision for a future pedestrian network; for a map
of existing pedestrian facilities in the region, refer to Chapter 4.

The different functional elements of the regional pedestrian network are:

• Pedestrian Parkways are generally major urban streets that provide frequent and
almost frequent transit service (existing and planned). They can also be regional trails.
• Regional Pedestrian Corridors are any major or minor arterial on the regional
urban arterial network that is not a Pedestrian Parkway. Regional trails that are not
Pedestrian Parkways are classified as Regional Pedestrian Corridors.
• Local Pedestrian Connectors are all streets and trails not included on the Regional
Pedestrian Network.
• Pedestrian Districts are the Central City, Regional and Town Centers and Station
Communities shown on the Regional Pedestrian Network Map. A pedestrian district is
an area with a concentration of transit, commercial, cultural, institutional and/or
recreational destinations where pedestrian travel is attractive, comfortable and safe.
Pedestrian Districts are areas where high levels of walking exist or are planned. All
streets and trails within the Pedestrian District are part of the regional system.

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Figure 3-37 applies the regional pedestrian network concept on the ground, illustrating
how different regional pedestrian facilities work together to form a comprehensive
network that allows people to walk to transit, schools, employment centers, parks, natural
areas, and shopping.

Figure 3-37 Regional pedestrian network map

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3.3.10 Transportation System Management and Operations Vision and Policies

The region’s Transportation System Management and Operations (TSMO) vision, concept
and policies address the management of the significant public investment in capital
infrastructure. Taking a “manage first” approach addressed concerns about the social,
environmental, and financial costs of large capital projects, such as building new lanes.
System management can restore reliable travel and provide flexibility for travelers to use
a variety of travel options. OAR 660.012, Oregon’s Transportation Planning Rule (TPR),
stipulates that coordinated land use and transportation plans should increase
transportation choices and make more efficient use of the existing transportation system
through transportation system management and demand management.

The 2021 TSMO Strategy updated the region’s ten-year strategy, continuing an innovative,
holistic, multimodal, and cost-effective approach to managing the transportation system.
The TSMO Strategy prioritizes optimization of the existing transportation system by
improving business practices and collaboration, encouraging behavior changes through
transportation demand management and using technology to understand and manage
how the system operates.

[Link] Transportation system management and operations vision

Regional stakeholders share a vision for TSMO: Collaborate to provide reliable, agile, and
connected travel choices so that all users are free from harm, and to eliminate the
disparities experienced by Black, Indigenous, people of color and people with low
incomes.

This vision reflects broad participation in planning for operations. TSMO participation is
multidisciplinary, and requires collaboration across several disciplines, including
planners, engineers, emergency responders, demand management specialists, operators,
and maintenance professionals. The region leads by aligning efforts with six TSMO
Strategy goals:
1. Provide a transportation system that is reliable for all users.
2. Connect all people to the goods, services, and destinations they need through a variety
of travel choices.
3. Collaborate as effective stewards for the transportation system.
4. Eliminate the disparities in the transportation system experienced by Black,
Indigenous, people of color and people with low incomes.
5. Create a transportation system where all users are free from harm.

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6. Manage the system to be agile in the face of growth, disruptions and changing
technology.

[Link] Transportation system management and operations concept

The concept for TSMO was further refined by stakeholders to establish objectives,
performance measures and actions. The 21 actions in Table 3-12 show the range of
regional work that connects TSMO work to achieving outcomes aligned with the RTP.
Table 3-12 Examples of TSMO and investments in four strategic areas
Concepts, Capabilities, and Infrastructure
• Inventory and manage regional signal and Intelligent Transportation System
Communications Infrastructure
• Manage transportation assets to secure the network
• Continue freight technology and Intelligent Transportation Systems deployment
• Facilitate ground truthing of emerging technologies
• Establish a Regional Transit Operators TSMO Group
• Unify and standardize fare subsidies for transit and Mobility on Demand
• Develop an Intelligent Transportation System travel time information data collection and
distribution plan for Regional Disaster Preparedness Organization regional emergency
routes
• Create continuous improvement process for existing and new signal systems and related
performance
• Deploy regional traveler information systems
• Implement integrated corridor management and mainstream into corridor planning
• Create a TSMO safety toolbox
• Build and use a TSMO Toolbox to connect gaps in bicycle and pedestrian infrastructure
•
Planning
• Develop a Mobility on Demand strategy and policy
• Pilot Origin-Destination data to prioritize TSMO investments
• Participate in regional public outreach to assist in guiding, listening and learning through
TSMO focused conversations
• Update the regional ITS Architecture
Listening & Accountability
• Track and prioritize TSMO investments for and with Black, Indigenous, people of color and
people with low incomes
• Create a community listening program
• Improve TSMO data availability to aid in traveler decisions and behavior
Data Needs
• Establish TSMO performance measures baseline.
• Explore new TSMO data sources

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[Link] Transportation system management and operations (TSMO) policies

Policy 1 Manage the transportation system for the effective and efficient use of
publicly funded transportation assets while supporting mobility, multi-modal
reliability, racial equity, safety, and reductions in carbon emissions.

Policy 2 Take actions from the regional TSMO Strategy by supporting a program that
conducts planning for operations, develops new operational concepts,
assesses future needs for capabilities, identifies gaps in data and establishes a
process for listening and accountability.

Policy 3 Optimize operations for reliability and mobility by coordinating and

advancing operator capabilities with shared tools and interoperable
technologies.

Policy 4 Provide real-time traveler information data across devices and at physical
locations that is comprehensive in serving the needs of people, businesses
and freight movement.

Policy 5 Improve incident detection and clearance times on the region’s transit and
motor vehicle networks to reduce the impact of crashes on the transportation
system.

TSMO Policy 1. Manage the transportation system for the effective and efficient use of
publicly funded transportation assets while supporting mobility, multi-modal reliability,
racial equity, safety, and reductions in carbon emissions.

Consistent with regional policy dating back to the 1990s, transportation agencies use
system management to make the best use of existing infrastructure to delay or avoid
large, higher-cost and potentially disruptive construction projects. This policy is applied
using regional values and desired outcomes for mobility, reliability, racial equity, safety,
and reduction in greenhouse gas emissions.

Transportation agencies collaborate to identify and scale up practices and technologies to

a regional scale that are effective at reducing vehicle miles traveled and crashes while
increasing reliability, connectivity, traveler information and investments that support
racial equity. These technologies also record data from the transportation system that
supports effective operations, planning and investments. Performance measures and
targets for system management support the Congestion Management Process (CMP),
Climate Smart Strategy and the 2021 TSMO Strategy.

Each step of implementing the strategy will use the TSMO Equity Tree (a branching
diagram), working up through a series of equity-focused questions. The last step is to
evaluate the plan or action for accountability. Each evaluation asks, “Did the outcomes
help or hurt communities of color?” and suggests next steps depending on the answer.

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TSMO Policy 2. Take actions from the regional TSMO Strategy by supporting a program that
conducts planning for operations, develops new operational concepts, assesses future
needs for capabilities, identifies gaps in data and establishes a process for listening and
accountability.

In 2010, the region completed a planning process to adopt the first ten-year strategy for
implementing TSMO. This formalized a regional TSMO Program to convene stakeholders
and support priorities with resources and partnerships. Metro convenes TransPort, the
subcommittee of Transportation Policy Alternatives Committee (TPAC). TransPort
advances the TSMO Strategy through monthly meetings for cooperative planning and
deployment of technologies and related procedures. Broad TransPort participation is
encouraged. This regional forum supports operators of greater Portland’s roads,
highways, transit, shared-use mobility services, transportation demand management,
congestion pricing, parking management, freight, active transportation facilities and
digital infrastructure. Metro and TransPort form additional work groups as needed.
Figure 3-38 shows where some of these actions and investments are envisioned to be
applied in the region to improve mobility, safety, efficiency, and reliability of the system.

TSMO Policy 3. Optimize operations for reliability and mobility by coordinating and
advancing operator capabilities with shared tools and interoperable technologies.

Transportation operators meet to share perspective on agency performance “capability

maturity” in operations and an overall performance of regional partners working
together. By reaching agreement on standards and procedures, transportation operators
share and advance capabilities. The end goal is to reach optimization across multiple
categories such as actively managing the transportation system, responding to incidents,
participating in planning, measuring performance, building a workforce with a culture of
technical understanding and leadership, and engaging in broad collaboration. In many
cases, optimization requires formal agreements, such as data sharing, that stem from
regional policies. In other cases, the conversations prepare for emerging technologies as
well as retiring outmoded technology.

TSMO Policy 4. Provide real-time traveler information data across devices and at physical
locations that is comprehensive in serving the needs of people, businesses and freight
movement.

TSMO responds to the barriers that can be overcome with traveler information, aiding
people to find and use the most sustainable affordable and safest option. The 2021 TSMO
Strategy includes actions to ensure investments and the creation of traveler information
is done with community involvement supportive of racial equity.

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TSMO Policy 5. Improve incident detection and clearance times on the region’s transit and
motor vehicle networks to reduce the impact of crashes on the transportation system.

TSMO Strategy is aligned with the region’s Safety Strategy to eliminate severe crashes
(crashes with major injuries or fatalities) by 2035. Crashes on the transportation network
cause non-recurring congestion, and fatal crashes result in longer clearance and recovery
times with sustained impacts. The 2021 TSMO Strategy aims to reduce harm, and reduce
the non-recurring congestion created by incidents, by improving the safety of the system
overall. 46

3.11.4 Transportation system management and operations map

The map for regional TSMO reflects Policy 1. Actively managing the transportation system
requires Intelligent Transportation Systems (ITS) equipment, such as variable message
signs, along throughways and arterials to alert travelers with information or advise safe
speeds. A variety of sensors help automate this process, but operators also utilize cameras
to solve problems remotely or deploy responders to an incident. A digital infrastructure
transmits data to and from transit and road operators who use central, shared software to
improve multimodal movement and safety at intersections with traffic signals. In
partnership with Portland State University, regional partners share data that can then be
accessed by academic researchers, planners, consultants, and the public. In partnership
with ODOT and the private sector, the region’s operators also use crowdsource data.
Crowdsource data helps evaluate reliability and can inform current travel conditions and
report crashes. Not all of this can fit into one map.

Another map will be created in a parallel effort with the 2023 RTP update. TSMO
stakeholders will define system completeness as part of the Regional Mobility Policy.
Stakeholders will map key corridors, referring to existing conditions and gaps that need
to be addressed. This map will be used in Transportation System Plan updates and
amendments.

“Ridesharing” in this context means traditional not-for-profit carpooling or vanpooling, not Transportation
46

Network Companies such as Uber or Lyft.

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Figure 3-38 Transportation system management and operations map

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3.3.11 Transportation Demand Management Concept and Policies

The Regional Travel Options (RTO) program is led by Metro and supports TDM work in
the region primarily through awarding grants to partners leading outreach and
engagement programs. This methodology has led to successful program implementation
in the places and instances where it has been used. But there remain significant gaps in
where TDM is used in the region and limits on expanding TDM efforts.

The RTO Strategy has established a goal of expanding the number of partners and
programs to support the region’s goals, but clearer policy direction is needed to better
define how TDM is to be implemented in the region and move TDM efforts beyond their
current levels.

[Link] Transportation demand management concept

Transportation Demand Management (TDM) is a series of activities aimed at ensuring

people are aware of, understand and have access to the full variety of travel options
available within the region. Though the region has already done much and continues to
work to improve and expand travel options through capital investments in non-auto
modes, the potential exists to increase the public’s use of these non-SOV modes through
TDM investments.

TDM complements and enhances other RTP policy areas by helping ensure the
transportation system is used in a balanced way to maximize investments in
transportation. TDM provides information, encouragement, and incentives to help people
make more of their trips safely and comfortably without driving alone. TDM programs are
developed and staffed by professionals trained in understanding the travel needs of
various groups, such as commuters or school children, and creating methods of helping
them make those trips without the need for an SOV trip.

A typical TDM program involves working with a defined group of people that have similar
travel needs or live in a specific place. Trained staff discuss the transportation needs and
interests of the group and provide information and incentives to encourage people to try
a new travel mode. This work can take many forms, from participation in
[Link], a statewide website provided by ODOT and dedicated to facilitating
travel options use, to a localized outreach effort specific to a single housing development.

Active involvement in delivering TDM programming is needed at the state, regional and
local levels. Certain programs are most effective when developed and led by local
governments, school districts, Transportation Management Associations (TMA),
employers or community organizations. Others are better suited to be conducted on a
state or regional scale.

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TDM is particularly effective when paired with other policies or capital investments.
Building new or improved active transportation infrastructure provides an opportunity
for TDM efforts to help people be aware of and use the new travel options available to
them. Complementary TDM activities should be planned and budgeted for in capital
system improvement projects to ensure people are aware of the new travel options
available to them, and to help them create new travel patterns and habits.

As the region considers roadway pricing and parking management as strategies for
reducing auto trips, TDM is an important component in ensuring that people’s mobility is
maintained when these strategies are implemented. Making people aware of the existent
options to paying a toll or fee can reduce the public’s financial burden and help improve
reliability and efficiency of the transportation network.

A significant portion of the region’s current TDM activities are coordinated through the
Regional Travel Options (RTO) program. This program, led by Metro on behalf of the
entire region, currently coordinates partner activities and provides grant funds for TDM
activities throughout the region. Through the RTO Strategy, the region’s TDM vision,
goals, objectives, and needs are defined. Roles for regional partners are defined, as is the
grant funding methodology and criteria.

[Link] Transportation demand management policies

Policy 1 Develop and refine regional and local TDM policies and implementation plans to
help reach climate, mobility and modal targets.

Policy 2 Provide adequate TDM resources and programming to meet the public’s specific
mobility needs for employment, education and essential services.

Policy 3 Provide and deliver TDM programming at a variety of scales: state, regional and
local.

Policy 4 Improve access to travel choices and eliminating barriers for marginalized
communities, with a focus on communities of color and people with low incomes.

TDM Policy 1. Develop and refine regional and local TDM policies and implementation plans
to help reach climate, mobility and modal targets.

TDM is a component of numerous federal, state, and regional plans, including:

• Climate Friendly and Equitable Communities Program
• ODOT Transportation Options Plan
• DEQ Employee Commute Options Rule
• Metro Climate Smart Strategies

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• Metro Regional Travel Options Strategy
• Metro Transportation System Management & Operations Strategy
• Congestion Management Process

These plans identify implementation of TDM programs as a part of the actions required
for objectives to be met. Sufficient policy development and planning must be in place so
that the roles and responsibilities of various entities are established and understood.
Current local planning is insufficient in defining how TDM is to be implemented at a local
level. And regional TDM planning is focused primarily on delivering grant funding
through the RTO program.

Planning for TDM programs should be expanded and coordinated at the state, regional
and local levels to ensure programs exist and are effective at helping people drive less.
For some TDM programs, implementation at a regional scale is the most cost effective and
efficient means of delivery. Other TDM programming functions best at a local, county or
school district scale. A comprehensive regional TDM effort involves multiple levels of
effort coordinated between government and non-government partners.

TDM Policy 2. Ensure adequate TDM resources and programming are deployed to meet the
public’s specific mobility needs for employment, education and essential services.

TDM programs are most effective when they are tailored to the specific travel needs of a
group or community. The region has moved from a broad-based, one-size-fits all
approach to TDM messaging and outreach, to implementing specific approaches for
different travel needs. For example, helping commuters find other ways to get to work
often involves working with employers to establish programs of information and
incentives at worksites. But for Safe Routes to School programs, an entirely different
approach is needed in working with parents and children to help them see the fun and
benefits of being able to safely walk, bike or roll to school. The region should provide
adequate funding, coordination, and resources to effectively implement TDM.

Often, TDM efforts are compromised by a lack of first/last mile connections to transit, or
by a lack of 24-hour transit service and vanpools. Many commuters live outside the region
and have no option other than driving to work. Improvements to the regional transit
system, as outlined in the transit policy section, are needed to improve TDM program
effectiveness.

Regional funding for a portion of the region’s TDM actions is provided through the RTO
program. In its current form, the RTO program funds grants to partners conducting TDM
activities. A portion of grant funds are reserved for partners with defined TDM plans and
programs to ensure on-going funding is available. Other grant funds are aimed at pilot or

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one-time TDM projects, or to develop partner capacity to plan for and deliver TDM
programs on an on-going basis.

ODOT also provides funding to the RTO program to promote and expand use of the
[Link] website.

Current funding levels are not sufficient to support an expanded TDM effort throughout
the region. Additional state, regional and local funding will be needed to support these
efforts.

TDM Policy 3. Provide and deliver TDM programming at a variety of scales: state, regional
and local.

A thorough regional TDM effort entails a variety of programs, at different scales and
targeted towards a spectrum of travel needs. Delivery of these programs is most effective
when it is led by the appropriate organization or government, depending on the program
and its purpose.

Creation of TDM policy and ordinances through local TSPs is a successful approach to
defining how TDM programs can be tailored to fit local needs and infrastructure and be
coordinated with regional-scale efforts.

Providing a robust variety of successful TDM programs around the region comes from
harnessing the efforts and expertise of cities, counties, regional and state agencies, as well
as non-governmental organizations (NGO).

Government partners have oversight authority and responsibilities for managing parking
and roadway pricing. Their role in these initiatives put them in a position to also lead
complementary TDM efforts to help the public understand the travel alternatives
available and ensure pricing strategies are implemented to their fullest potential.

Non-governmental organizations (NGOs) have insights and relationships with

communities that, when combined with the capabilities and responsibilities of
governments, can lead to more effective and impactful TDM programming.

TDM Policy 4. Improve access to travel choices and eliminating barriers for marginalized
communities, with a focus on communities of color and people with low incomes.

The negative impacts of auto-centric transportation investments in the region have fallen
particularly hard on marginalized communities, especially communities of color and
people with low incomes. TDM investments made through a racial equity focus begin to
correct these impacts and improve multiple regional priorities by addressing known
burdens on marginalized communities in accessing travel options, which includes cost,
personal safety from harassment/bias, and physical access to travel options. TDM efforts

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should focus on working with partners to learn together how to adapt and develop
programming that is inclusive of and meets the needs of marginalized communities.

Implementing meaningful TDM programming in many areas of the region is constrained

by the lack of sidewalks, safe bicycling infrastructure or low levels of transit service.
These same areas are often those with high percentages of Black, Indigenous, people of
color and low-income residents. Continued focus and prioritization of improvements in
these areas is a key part of ensuring that TDM programs can benefit everyone in the
region.

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3.3.12 Emerging Technology Policies

Over the past several decades, new developments in technology have begun to reshape
the way that people travel. Over three-quarters of adults now own a smartphone, often
including apps that provide instant access to information on travel choices. Some new
services combine smartphones with social networking, online payment, and global
positioning systems to connect people with vehicles and rides. Most auto manufacturers
now offer hybrid or electric vehicles, and the cost of these vehicles has been falling, giving
more people access to clean transportation options. Other automakers have been working
to develop vehicles that drive themselves, which could dramatically transform our
relationship with cars.

The Regional Transportation Plan (RTP) uses the blanket term emerging technology to
encompass all new developments and establishes a set of terms to describe and
categorize them, including:
• Advances in vehicle technology, such as automated vehicles (AVs) that operate
independently of any input from a human driver, connected vehicles (CVs) that
communicate with each other or with traffic signals and other infrastructure, and
electric vehicles (EVs) that use electric motors instead of or in addition to gasoline-
powered motors.
• New mobility services that use smartphones and other new technologies to connect
people with vehicles and rides. These services include ride hailing companies that
connect passengers with drivers who provide rides in their personal vehicles; car,
scooter, or bike share that allow people to rent a nearby vehicle for short trips; and
microtransit services that operate vans or small buses, often tailoring schedules and
routes to customers’ travel needs. Traveler information and payment services that
help people plan trips and compare different ways of getting around, get detailed
information on their mode of choice, track and share their trips, and pay for trips.

[Link] Emerging technology principles

Unlike other aspects of the transportation system, which are built and operated by the
public sector, many emerging technology services are currently developed and operated
by private companies. Transportation agencies can work with private companies in a
variety of different ways – including contracting directly with companies and creating
regulations that govern how companies operate – to bring emerging technology services
to their communities in a way that benefits people. This work often happens more in the
realm of partnerships and pilot projects than in the realm of policy and regulation. The
principles summarized in Table 3-13, guide Metro and its partners in identifying
companies that share common goals when developing partnerships and pilot projects.

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Table 3-13 RTP goals and corresponding emerging technology principles
RTP goal Emerging technology principle
Economy Emerging technology should create more efficient ways to meet the transportation
needs of local businesses and workers.
Emerging technology companies and users should contribute their fair share of the
cost of operating, maintaining and building the transportation system.
Climate Emerging technology should improve transit service or provide shared travel options
and support transit, bicycling and walking.
Mobility Emerging technology should promote shared trips, decrease vehicle miles traveled
and minimize conflicts between modes.
Safety Emerging technology should reduce the risk of crashes for everyone and protect users
from data breaches and cyber attacks.
Equity New mobility services should be accessible, affordable and available for all and meet
the transportation needs of communities of color and marginalized communities.
Companies and public agencies should collaborate and share data to help make the
transportation system better for everyone.

[Link] Emerging technology policies

Policy 1 Make emerging technology accessible, available and affordable to all, and use
technology to create more equitable communities.

Policy 2 Use emerging technology to improve transit service, provide shared travel
options throughout the region and support transit, bicycling and walking.

Policy 3 Use the best available data to empower travelers to make travel choices and
to plan and manage the transportation system.

Policy 4 Advance the public interest by anticipating, learning from and adapting to
new developments in technology.

Emerging Technology Policy 1. Make emerging technology accessible, available and

affordable to all, and use technology to create more equitable communities.

Metro and its partners are responsible for ensuring that the transportation system serves
all people, particularly those in the greatest need. New mobility services have the
potential to bring more flexible transportation options to marginalized communities, but
not everyone can access these services. Communities of color face the threat of
discrimination from drivers or companies, some older adults and people who speak
limited English are not able to use apps, many low-income people cannot afford costly
data plans or lack access to bank accounts and people in wheelchairs often struggle to find
accessible shared vehicles. Removing these barriers can help to bring better
transportation choices to communities of color, night shift workers, people with
disabilities, people living in areas that lack frequent transit service and others.

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Emerging Technology Policy 2. Use emerging technology to improve transit service, provide
shared travel options throughout the region and support transit, bicycling and walking.

Emerging technology has already given people in the region new ways to get around,
whether by taking car, scooter, or bike share, hailing a ride, or simply making it easier for
people to learn about and pay for public transportation. However, new mobility services
are often concentrated in communities where it is already easy to take transit, walk or
bike, which can create more congestion and pollution by attracting people away from
more efficient modes and clogging streets with vehicles looking for passengers. To make
the most of emerging technology’s potential to reduce congestion and pollution, the
region’s transportation agencies need to prioritize and invest in the modes that move
people most efficiently; improve convenience and safety for transit riders, pedestrians,
and bicyclists; and direct new mobility services to provide options in places that currently
lack them in addition to adding options to communities that are already rich in travel
choices.

Emerging Technology Policy 3. Use the best data available to empower people to make
travel choices and to plan and manage the transportation system.

In today’s transportation system, data is almost as important as infrastructure.

Smartphones enable people to instantly book a transit trip or find a new route when they
run into traffic, and new mobility companies use real-time data to balance supply and
demand. Metro and its agency partners work to ensure that high-quality information is
available for all transportation options in the region, and that this information is
presented in a way that allows travelers to seamlessly plan and book trips.
Transportation agencies also work to collect data on how travel patterns are changing to
plan the transportation system. This requires collecting data from companies that operate
emerging technologies in a way that helps agencies understand trip making without
risking users’ privacy, it also requires agencies to improve data on transit, bicycling and
walking as well as on new mobility options and create systems that allow us to share this
data among public agencies.

Emerging Technology Policy 4. Advance the public interest by anticipating, learning from
and adapting to new developments in technology.

Our current planning process is designed around infrastructure projects designed to last
for 50 years and an unchanging set of transportation services. It can take decades to plan
and build a project, and once it is built there is little room for change. This time-intensive,
risk-averse approach continues to make sense for major infrastructure projects, but to
effectively plan for emerging technology agencies need to test new services and
approaches and learn from their experience. Agencies in the region have used approaches
like pilot testing and phased implementation of regulations so that they can test new

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approaches to working with technology in a small-scale, low-risk manner before applying
what they learn to larger-scale efforts.

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Chapter 4
Our Growing and Changing Region
2023 Regional Transportation Plan
July 10, 2023 PUBLIC REVIEW DRAFT
TABLE OF CONTENTS
Introduction ............................................................................................................................................... 4-1
Purpose .................................................................................................................................................. 4-1
Chapter organization ............................................................................................................................. 4-1
Mobility ...................................................................................................................................................... 4-2
Evolving travel patterns ......................................................................................................................... 4-3
System completeness ............................................................................................................................ 4-7
VMT per capita ..................................................................................................................................... 4-13
Throughway travel speed reliability..................................................................................................... 4-13
Transit frequency ................................................................................................................................. 4-15
Access to destinations.......................................................................................................................... 4-16
Safety ...................................................................................................................................................... 4-17
Historical crash analysis ....................................................................................................................... 4-18
Crashes by mode .................................................................................................................................. 4-21
High Injury Corridors ............................................................................................................................ 4-21
Equity ...................................................................................................................................................... 4-24
History of discriminatory planning in the Greater Portland region ..................................................... 4-24
Demographic and economic changes .................................................................................................. 4-28
Inequities in housing and employment ............................................................................................... 4-30
Transportation needs in Equity Focus Areas........................................................................................ 4-33
Economy................................................................................................................................................... 4-42
Jobs and growth ................................................................................................................................... 4-42
Where jobs are located ........................................................................................................................ 4-45
How workers move through the region ............................................................................................... 4-46
How goods move through the region .................................................................................................. 4-48
Connecting the region’s employment centers..................................................................................... 4-50
Climate ..................................................................................................................................................... 4-52
The 2023 RTP GHG and VMT gap ......................................................................................................... 4-54
VMT per capita ..................................................................................................................................... 4-57
FIGURES
Figure 4.1: Trip volumes by mode and by facility type, indexed to February 2020 levels, February 2020-
2021 (PBOT freight route and arterial count data; ODOT throughway count data; TriMet transit
ridership performance reports; data were compiled in April 2021).......................................................... 4-5
Figure 4.2: Weekday vehicle and transit volume changes, October 2019-October 2021 (ODOT
throughway count data; Streetlight arterial volume data; TriMet transit ridership by route data) ......... 4-6
Figure 4.3: Regional transit network gaps (2018 RTP networks and 2022 partner agency data) ............. 4-9
Figure 4.4: Regional pedestrian network gaps (2018 RTP networks and 2022 partner agency data) .... 4-10
Figure 4.5: Regional bicycle network gaps (2018 RTP networks and 2022 partner agency data) ........... 4-11
Figure 4.6: Regional trail network gaps (2018 RTP networks and 2022 partner agency data) ............... 4-12
Figure 4.7: 2018 RTP regional motor vehicle network map ((2018 RTP networks and current partner
agency data) ............................................................................................................................................. 4-13
Figure 4.8: 2019 Throughway Travel Speed Reliability Performance (2019 RITIS data).......................... 4-14
Figure 4.9: Map of high-frequency transit (headways of less than 15 minutes) and transit-supportive
communities (12.5 or more people and/or jobs per acre), 2020 (Metro regional travel model and
distributed growth forecast) .................................................................................................................... 4-15
Figure 4.10: Five-year average rates of fatal crashes, 2007-2020, with trendlines and Vision Zero
targets (ODOT crash data, analyzed by Metro staff) ............................................................................... 4-19
Figure 4.11: Five-year average rates of fatal and serious injury crashes by mode, 2007-2020, with
trendlines and Vision Zero targets (ODOT crash data, analyzed by Metro staff) .................................... 4-19
Figure 4.12: Annual fatalities by county, 2016-2021 (ODOT preliminary fatal crash data)..................... 4-20
Figure 4.13: All crashes and fatal crashes by mode, 2016-2020 (ODOT data, analyzed by Metro staff) 4-21
Figure 4.14: 2023 RTP High Injury Corridors and Intersections, 2016-2020 (ODOT crash data analyzed
by Metro staff) ......................................................................................................................................... 4-22
Figure 4.15: Timeline of discriminatory planning and advancements toward equity in the Greater
Portland region ........................................................................................................................................ 4-26
Figure 4.16: Population by race and ethnicity in the Portland region and surrounding counties, 2000
and 2020 (U.S. Census) ............................................................................................................................ 4-29
Figure 4.17: Current and forecasted population by age cohort in the 7-county Greater Portland region,
2020 and 2045 (Metroscope) .................................................................................................................. 4-30
Figure 4.18: Homeownership rates by race and income for Multnomah, Washington and Clackamas
Counties, 2020 (American Community Survey) ....................................................................................... 4-31
Figure 4.19: Regional employment rates for workers earning above and below the median wage
(indexed to January 2020) January 2020 – August 2021 (Earnin, Intuit, Kronos and Paychex data,
analyzed by Cambridge Systematics for the Commodities Movement Study) ....................................... 4-32
Figure 4.20: 2023 RTP Equity Focus Areas, (Census and American Community Survey data, 2016-2020)4-33
Figure 4.21: Regional transit network gaps (2018 RTP networks, partner agency data) ........................ 4-35
Figure 4.22: Map of high-frequency transit (headways of less than 15 minutes) and transit-supportive
communities (12.5 or more people and/or jobs per acre), 2020 (Metro travel model, 2018 RTP transit
network and distributed growth forecast) .............................................................................................. 4-36
Figure 4.23: Percent of jobs accessible by driving and by transit by community type, 2020 (Metro travel
model, 2018 RTP transit network, and land use data) ............................................................................ 4-38
Figure 4.24: Pedestrian, bicycle and trail network completion for EFAs and non-EFAs (2018 RTP
networks and current partner agency data) ............................................................................................ 4-39
Figure 4.25: Percent of average annual traffic fatalities and severe injuries in Equity Focus Areas, by
mode, 2016-2021 (ODOT crash data, analyzed by Metro staff) .............................................................. 4-41
Figure 4.26: Unemployment rate in the greater Portland region vs. the U.S., 2000-22 (Oregon
Employment Department, 2022) ............................................................................................................. 4-43
Figure 4.27: Employment by industry in the greater Portland region (Oregon Employment Department,
2019) ........................................................................................................................................................ 4-44
Figure 4.28: Number of jobs by Census Tract, 2021 (Economic Value Atlas: Esri/DataAxle) .................. 4-45
Figure 4.29: 2040 Growth Concept Map.................................................................................................. 4-46
Figure 4.30: Where workers live and commute in the Greater Portland region and surrounding
counties, 2019 (Census LEHD Origin-Destination Employment Statistics) .............................................. 4-47
Figure 4.31: Weight of outbound freight by mode in the Greater Portland Region, 2017 (Freight
Analysis Framework data)........................................................................................................................ 4-49
Figure 4.32: Value of outbound freight by mode in the Greater Portland Region, 2017 (Freight Analysis
Framework data)...................................................................................................................................... 4-49
Figure 4.33: Climate Smart greenhouse gas reduction strategies ........................................................... 4-53
Figure 4.34: Estimated percentage reductions in daily VMT per capita, Target vs. STS+RTP18 Scenario4-56
Figure 4.35: Daily VMT per capita for the Greater Portland region (dark blue) and the U.S (light blue),
1990-2020 (Oregon and Washington Highway Performance Monitoring System offices) and regional
climate targets (green)............................................................................................................................. 4-57
Figure 4.36: Home-based VMT per capita by Metro transportation analysis zone, 2020 (Metro regional
travel model) ............................................................................................................................................ 4-59

TABLES
Table 4.1: Commute mode shares in the Greater Portland region, 2010-2019 (American Community
Survey five-year estimates, 2006-10 and 2015-19 data) ........................................................................... 4-3
Table 4.2: System completeness by modal network and location within the region (2018 RTP networks
and 2022 partner agency data).................................................................................................................. 4-7
Table 4.3: Percent of jobs accessible by driving and by transit, by community type and time of day,
2020 (Metro travel model and land use data) ......................................................................................... 4-16
Table 4.4: Federal Safety Performance Measures for Traffic Fatalities and Serious Injuries, 2016-2020
(Oregon Department of Transportation crash data analyzed by Metro) ................................................ 4-18
Table 4.5: Percent of jobs accessible by driving and by transit, by community type and time of day,
2020 (Metro travel model and land use data) ......................................................................................... 4-50
Table 4.6: Bike/ped system completeness by location within the region (2018 RTP networks and
current partner agency data) ................................................................................................................... 4-51
Table 4.7: Estimated absolute and percentage reductions in daily VMT per capita by scenario ............ 4-55
INTRODUCTION
Purpose

The greater Portland region is an extraordinary place to call home. It is known for its unique
communities, a diverse and growing economy and a world-class transportation system. The
region is surrounded by stunning natural landscapes and crisscrossed with a network of parks,
trails and natural areas within a walk, bike ride or transit stop from home. It also serves as a
freight gateway to domestic and international markets for businesses located throughout the state
of Oregon, southwest Washington, the mountain states and the Midwest.

The region did not get this way by accident. Over the years, communities throughout the region
have taken a collaborative approach to planning that has helped make the region one of the most
livable in the country. Every day, the region's 2.4 million people have places to go – to work or
school, to doctors and grocery stores and parks and back home again. All these trips, along with
our transportation system, knit the region together – from Forest Grove to Troutdale, Vancouver
and Portland to Wilsonville and every community in between.

Through our dedication to planning and working together to make local and regional plans a
reality, we have set a wise course for managing growth, but new challenges continue to emerge.
Our success in creating a livable region has attracted new residents and employers, but our
housing supply hasn’t kept up with population growth, and it has become prohibitively expensive
for many people to afford homes, particularly in neighborhoods where it is easy to walk, bike or
take transit. This may be one of the reasons why some recent investments in transit and trails
haven’t drawn as many users as they have in past decades. And even the best-laid plans couldn’t
have anticipated the impact of the COVID-19 pandemic, which dramatically reshaped how people
travel and continues to affect the region even as the public health emergency recedes.

This chapter provides a snapshot of current conditions and trends within the Greater Portland
region and highlights key regional transportation challenges and needs for the plan to address.

Chapter organization

The RTP Needs Assessment is organized around the five 2023 RTP priorities: mobility, safety,
equity, economy, and climate. Each section of this chapter is dedicated to one of these priorities,
and contains research, maps and data describing transportation needs with respect to each
priority. Because these goals are often aligned – for example, increasing transit service often
benefits mobility, climate, and equity – some sections contain similar information, or refer to
relevant information in other sections.

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MOBILITY
The draft Regional Mobility Policy included in the 2023 RTP update redefines how the region
defines and measures mobility throughout the plan, establishing three performance measures for
transportation agencies to use in plans and projects:

• System completeness
• Vehicle miles traveled
• Travel speed reliability on throughways

Development of the draft regional mobility policy has been underway since 2019, through a joint
effort of Metro and the Oregon Department of Transportation (ODOT). In late 2022, JPACT and the
Metro Council accepted the draft mobility policies and directed further development of the
accompanying performance measures as part of completing the 2023 RTP.

The throughway performance measure and thresholds aim to identify future transportation needs
on region’s throughways using travel speed as a proxy for reliability. The draft policy proposes a
minimum throughway performance threshold of no more than four hours per weekday with
travel speeds below 35 miles per hour on controlled access freeways (e.g., I-5, I-84, I-205, I-405,
US 26 and OR 217) or 20 miles per hour on non-freeways with traffic signals (e.g., OR 99E, US 30,
OR 212). If average speeds fall below the relevant speed threshold for more than a total of four
hours in a day, it indicates the system is failing at that location and a transportation need exists.

This section provides a general update on how travel patterns have evolved since the last RTP
update in 2018 as well as baseline information on the three measures above. Key findings include:
• Travel declined during the COVID pandemic. Between October 2019 and October 2021, daily
throughway trips on a sample of regional mobility corridors decreased by five percent, daily
arterial trips decreased by 14 percent, and daily transit ridership decreased by 41 percent.
• Overall, the planned motor vehicle network is much more complete than the other modal
networks.
• Active transportation networks are mostly complete near transit. However, there are plenty of
small gaps that hinder people’s ability to walk and bike to transit stations and other important
destinations. There are larger bicycle and pedestrian gaps between urban centers and at the
edges of the region, many of which are on the trail system.
• Per capita VMT in the Greater Portland region has been significantly lower than the national
average since 1997 and has mostly been flat or declining. But in order to meet ambitious VMT
reduction targets the region will likely need to take new approaches.
• During rush hour, the average traveler can reach 43% of jobs in the region by driving, and 7%
by transit. Metro and partner agencies are working to increase ridership by better connecting
activity centers – potentially including many developing suburban centers – with frequent
transit.

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Evolving travel patterns

Between 2015 (the base year for the 2018 RTP update) and 2020 (the base year for the 2023 RTP
update, the region grew significantly – by 135,000 people (an 8.4% increase), 57,000 households
(8.9%) and 90,000 jobs (10.1%). 1 This growth is projected to continue, though not necessarily at
the same rapid rate as the region saw during the previous decade. As Greater Portland continues
to evolve into a major metropolitan area, with increasing housing prices and a more specialized
economy, commute patterns are becoming more complex. Figure 4.30 in the Thriving Economy
section provides a window into this growing complexity; it shows how workers commute within
and between counties in and around the region. Over 45 percent of workers in the 3 Metro-area
counties work in a different county than where they live.

Though the number of jobs and homes in the region is growing, the way that people commute
hasn’t changed much. Table 4.1 shows commute mode shares for 2010 and 2019 (the base year
for the 2023 RTP update, and the last year of available data that does not reflect the impacts of the
COVID-19 pandemic). The table shows both absolute change in mode shares between 2010 and
2019 (which better captures which modes are dominant in the region, but can understate change
for modes other than driving because they are less widely-used to begin with) and relative change
(which better captures the extent to which usage of different modes is growing or declining
relative to current levels, but can also amplify small variations that are due to margins of error or
other reporting issues). This data is built up from Census tract-level estimates for all tracts within
the MPA boundary, weighted according to the population in each tract.
Table 4.1: Commute mode shares in the Greater Portland region, 2010-2019 (American
Community Survey five-year estimates, 2006-10 and 2015-19 data)
Absolute Relative
2010 mode 2019 mode change 2010- change 2010-
Mode shares shares 2019 2019
Drive alone 69.5% 67.8% -1.7% -2.4%
Carpool 9.9% 9.2% -0.7% -6.6%
Transit 7.7% 8.1% 0.4% 5.3%
Walk 3.7% 3.6% -0.1% -2.4%
Bike 2.3% 2.6% 0.2% 10.4%
Work from home 6.0% 7.6% 1.6% 26.4%

Between 2010 and 2019, vehicle commute shares fell slightly, the share of people biking or taking
public transportation to work rose slightly, and there were very small changes in how many
people walk to work. This reflects the challenges inherent in achieving the RTP’s goal of
supporting a shift from driving to other modes. Though the region has prioritized investments in
transit and active transportation over the past several decades, the motor vehicle network is far
more built-out than other networks and people’s daily travel habits are deeply ingrained, so even
major multimodal investments only produce incremental changes. The rising cost of housing,
especially in walkable neighborhoods near transit stations, may also play a role since it makes it

1
Metro Regional Travel Model.

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harder for people with lower incomes – who tend to be more likely to use modes other than
driving, particularly transit – to afford a home that offers access to options.

The biggest change captured in Table 4.1 is the growth of working from home. The share of people
working from home increased by a relative 25% between 2010 and 2019 – double the growth in
transit, which is the next-fastest-growing mode in the region – and as of 2019 there were almost
as many people in the region working from home as there were taking transit to work.
Furthermore, the data shown above only captures people who work from home full time; if it
accounted for people who work from home a few days per week it would show an even larger
percentage of people teleworking.

It is important to note that the data shown above only capture commute trips. These trips make
up less than 30 percent of all trips in the region, but since commutes are often time-sensitive,
longer-distance trips they account for a significant share of congestion and vehicle miles traveled.
Metro’s travel surveys find that people are significantly more likely to walk and carpool and less
likely to drive alone or take transit when taking non-commute trips than they are when
commuting.

Impacts of the COVID-19 pandemic on travel

The data discussed above highlights how slowly transportation behavior often changes. However,
major events like recessions and natural disasters can have immediate and drastic impacts on
how people travel, and it can take a while for conditions to stabilize afterward. The COVID-19
pandemic that began in March 2020 was just such an event. Even though the federal government
has now declared the COVID-19 public health emergency over, offices and hotels are still emptier
than they were before the pandemic, and the impacts of the pandemic are still rippling through
the economy and the transportation system.

The RTP is a plan for the next 20 years. Using pre-pandemic data to assess needs allows the RTP
to focus on the long-term demographic and economic changes that shaped the region’s growth
over the past several decades, and that are likely to continue to determine how the region grows
in the future. Most of the data in this chapter is from 2020 or before. 2020 is the base year for the
2023 RTP update, is often the most recent year for which data are available.

Many aspects of life and travel have already returned to their “normal” pre-pandemic state, while
others are trending that way. It’s possible that some of the impacts of the pandemic will be so
long-lasting that they lead to a “new normal” somewhere between conditions at the peak of the
pandemic and those beforehand. Considering this possibility – which begins with understanding
how transportation patterns have continued to evolve since the pandemic 2 – helps the RTP be
more resilient under different potential futures. Figure 4.1 below shows how travel demand
changed for transit and on different types of streets during the year following the pandemic.

2
Most data in this section comes from Metro’s Emerging Transportation Trends Study, which can be found at:
[Link]

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Figure 4.1: Trip volumes by mode and by facility type, indexed to February 2020 levels,
February 2020-2021 (PBOT freight route and arterial count data; ODOT throughway count
data; TriMet transit ridership performance reports; data were compiled in April 2021 3)
120%
Trip volumes (as % of February 2020 baseline trip volumes)

Freight routes
100%

Throughways
(weekday)
80%
Arterials

60% Throughways
(weekend)

Bus
40%
MAX

20%

0%

All different types of travel shown fell during the initial months of the pandemic, but some fell
more steeply and/or recovered more slowly than others. Trips on freight routes fell the least and
recovered most quickly, potentially because goods kept moving during the pandemic and many
freight routes also connect workers to jobs that remained in-person during the pandemic.
Throughway trips recovered to 80 percent of pre-pandemic levels by May 2020, and then
continued to fluctuate, which could reflect normal seasonal changes in travel demand, extreme
weather events, and/or the spread of new COVID variants. Arterial travel appeared to be
recovering less slowly, but the data shown only covers the first half-year of the pandemic.

Metro collected data for a set of throughways, arterials and transit routes that reflect key
corridors in the region.

3
This figure, as well as some of the other data in this section, reflects the underlying availability of source data at
the time of compilation. Some of this data comes from limited-duration collection and reporting efforts that
agencies undertook when the pandemic began to understand its impact.

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Figure 4.2 below shows the results. Changes in throughway volumes are shown in yellow, changes
in arterial volumes are shown in blue, and changes in transit ridership are shown in red.
Figure 4.2: Weekday vehicle and transit volume changes, October 2019-October 2021 (ODOT
throughway count data; Streetlight arterial volume data; TriMet transit ridership by route
data)

Average daily throughway trips across the study locations decreased by five percent between
October 2019 and October 2021, while arterial trips declined by 14 percent and transit ridership
fell by 41 percent. In almost every location studied, arterial volumes decreased more significantly
than throughway volumes. Transit volumes fell particularly significantly in locations closer to the
center of the region.

These findings are consistent with research about the pandemic’s broader impacts on
transportation, which has found that teleworking reduces vehicle trips and miles traveled, as well
as transit ridership, particularly near job centers. Transportation agencies in the region are
already responding to these dynamics – for example, TriMet’s recent Forward Together concept 4

4
[Link]

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realigns transit service to focus on routes that have maintained ridership through the pandemic
and that serve people with low incomes, who were more likely to continue to rely on transit over
the past several years. If teleworking rates remain high, it would likely lead to slightly lower levels
of VMT per capita and transit use than the region would otherwise experience, all other things
being equal.

System completeness

Meeting Mobility goals depends on providing a variety of seamless and well-connected travel
modes so that people have multiple options for making trips.

Table 4.2 below summarizes the completeness of different regional modal networks, using the
planned networks developed during the 2018 RTP. These planned networks are based on
extensive analyses of network conditions and deficiencies as of July 2022, as well as relevant
policies and performance/design standards that apply across the region. 5 This table also reports
on the completeness of the bicycle and pedestrian networks 6 near transit stations and along the
arterials, which helps people make safe multimodal trips. Completing active transportation
networks in EFAs is a priority under the RTP’s Equity policies, and completing networks in 2040
centers and emplyoment/industrial areas is important to supporting a Thriving Economy – see
those sections for a discussion of bike/ped system completeness in those specific communities.
Table 4.2: System completeness by modal network and location within the region (2018 RTP
networks and 2022 partner agency data)
Total planned Number of miles Percent of miles
Network miles completed completed
Region-wide
Transit network 7 1,460 788 54%
Pedestrian network 1,040 597 57%
Bicycle network 1,149 626 55%
Trail network 560 245 44%
Motor vehicle network 1,171 1,146 98%
Near transit
Pedestrian network 837 539 64%
Bicycle network 881 538 61%

5
For further information, see the Regional Transit Strategy, the Regional Active Transportation Plan, the Regional
Trail System Plan, and forthcoming updates to the Regional Mobility Policy.
6
Metro distinguishes between on-street bicycle and pedestrian gaps in facilities like bike lanes and sidewalks and
off-street bike/ped gaps in facilities like trails. On-street facilities are generally needed to provide good active
transportation connections in centers, near transit, and along arterials, whereas off-street facilities provide
longer-distance connections between these areas. Table 4 focuses on the on-street bike/ped network.
7
Consistent with how completeness is analyzed for other modal networks, the assessment of transit system
completeness is based on the financially constrained RTP, and excludes the strategic investments shown in Figure
19.

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 Total planned Number of miles Percent of miles
Network miles completed completed
Along arterials
Pedestrian network 725 414 57%
Bicycle network 619 412 66%

Overall, the planned motor vehicle network is much more complete than the other modal
networks. Consistent with the 2040 Growth Concept, the active transportation networks are
generally more complete near transit. However, the fact that the pedestrian network along
arterials is not significantly more complete than it is in the rest of the region is a concern given
that 77 percent of pedestrian crashes occur on arterials.

However, several important gaps remain in these areas. The maps below identify these gaps by
comparing the regional visions (i.e., planned systems) for these networks – which are based in
extensive coordination with stakeholders and analysis of transportation and land use data – to the
facilities that are on the ground today in order to identify gaps in the system.

Figure 4.3 below shows gaps in the transit network where planned transit has not yet been built.
The map differentiates between gaps in frequent (thick lines) and regular (thin lines) transit
service, and between gaps in the financially constrained network, which the region has identified
funding to complete (green), and gaps in the strategic network, which the region has not yet
identified funding to complete (purple). It also shows the location of existing regular and frequent
service (orange lines). All of this information is overlaid with Equity Focus Areas (violet cross-
hatching) to highlight how the current and planned network serves these communities that
particularly need improved transit service (see the Equity section for more details on transit-
related Equity needs).

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Figure 4.3: Regional transit network gaps (2018 RTP networks and 2022 partner agency
data)

Filling the gaps in the frequent transit system (thick green lines) are particularly important to
meeting the region’s Climate goals. The 2018 RTP relied on a planned increase in frequent transit
service to meet GHG reduction targets, and the thick green lines indicate routes where this transit
has yet to be implemented. These gaps are distributed over most of the more populated parts of
the region, and there are large concentrations of them in East Portland and the
Orenco/Bethany/Aloha area.

Figure 4.4 and Figure 4.5 show gaps in the regional pedestrian and bicycle systems. Completed
facilities are shown in purple or green; gaps are shown in red. The maps distinguish between gaps
in on-street facilities like sidewalks and bike lanes (darker shades) and gaps in off-street facilities
like trails (lighter shades). Both the pedestrian and bicycle networks are overlaid with urban
centers identified in the 2040 growth concept since RTP policies direct pedestrian and bicycle
investments toward centers of activity where short distances between destinations make it easy
to travel on foot. As noted above, we encourage readers to look at these maps in detail.
Pedestrians and bicyclists are vulnerable users of the transportation system, and even a small gap
in the network can make an entire trip feel unsafe and/or inconvenient.

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Figure 4.4: Regional pedestrian network gaps (2018 RTP networks and 2022 partner agency
data)

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Figure 4.5: Regional bicycle network gaps (2018 RTP networks and 2022 partner agency
data)

Both the bicycle and pedestrian networks are generally more complete in the region’s urban
centers, which is consistent with RTP policies that direct transportation investments to support
implementation of the 2040 growth concept. But even within those centers there are plenty of
small gaps that hinder people’s ability to walk and bike – and that can also impact transit use and
the economy. Walking is the most primary form of transportation. Whether an entire trip is done
on foot or using a wheelchair or similar mobility device, people must walk for at least a part of
every trip, even when the rest of the trip takes place on transit, in a vehicle or on a bicycle.
Pedestrian activity thrives where the pedestrian facilities are well connected, safe and
attractive—meaning well lit, free of debris and in good repair—and where there are frequent
protected crossings. A 2022 PSU-Metro study found that pedestrian facilities also had a positive
economic effect on surrounding communities. 8

Closing the gaps shown above can be a relatively low-cost way to complete critical connections in
areas that are already generally well-suited for walking and bicycling. There are larger bicycle and
pedestrian gaps between urban centers and at the edges of the region, many of which are on the
trail system. Closing these gaps has the potential to transform how people travel in communities
where most trips are by car, especially when pedestrian projects are accompanied by
complimentary investments in transit and community development.

8
[Link]

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Figure 4.6 below shows gaps in the regional trail network in red and completed trail segments in
green, as well as the same urban centers that are included as overlays in the bicycle and
pedestrian maps above. Trails are long-distance, high-quality bicycle and pedestrian facilities that
provide connect regional centers, and they often pass through natural areas and/or include
landscaping and natural features.
Figure 4.6: Regional trail network gaps (2018 RTP networks and 2022 partner agency data)

Trails are also part of the bicycle and pedestrian networks shown above, and this map
underscores how filling many of the longer-distance gaps shown above depends upon completing
the regional trail system.

Figure 4.7 shows the planned motor vehicle network by facility type, including planned facilities
that have not yet been built, which are shown in dashed lines. As the map below shows, the
network is largely built out.

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Figure 4.7: 2018 RTP regional motor vehicle network map ((2018 RTP networks and current
partner agency data)

VMT per capita

Vehicle miles traveled (VMT) per capita measures much the average person in the Portland region
drives each day. Many transportation agencies in the region use VMT per capita to measure
progress toward creating vibrant communities and providing multimodal travel options. All other
things being equal, VMT per capita tends to be lower in compact communities with a mix of
destinations and good access to transit and other options. 9 As discussed at the beginning of this
section, the Regional Mobility Policy establishes VMT per capita as a critical performance measure
for Mobility, and the State has also established VMT per capita as the key metric used in
determining whether the RTP meets its climate targets. See the Climate section for information on
historical, current, and projected future levels of VMT in the region.

Throughway travel speed reliability

The draft regional mobility policy for the 2023 RTP identifies travel speed on throughways as one
of three mobility performance measures. The other two measures – system completeness and
vehicle miles traveled per capita – are discussed above and in the climate section, respectively.

9
[Link]
development

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Development of the draft regional mobility policy has been underway since 2019 through a joint
effort of Metro and the Oregon Department of Transportation (ODOT). In late 2022, JPACT and the
Metro Council accepted the draft mobility policies and directed further development of the
accompanying performance measures as part of completing the 2023 RTP.

The throughway performance measure and thresholds aim to identify future transportation needs
on region’s throughways using travel speed as a proxy for reliability. The draft policy proposes a
minimum throughway performance threshold of no more than four hours per weekday with
travel speeds below 35 miles per hour on controlled-access freeways (e.g., I-5, I-84, I-205, I-405,
US 26 and OR 217) or 20 miles per hour on non-freeway throughways with traffic signals (e.g., OR
99E, US 30, OR 212). If average speeds fall below the relevant speed threshold for more than a
total of four hours in a day, it indicates the system is failing at that location and a transportation
need exists. Figure 4.8 maps current throughway reliability results using 2019 weekday speed
data collected via the Regional Integrated Transportation Information System (RITIS) platform.
Figure 4.8: 2019 Throughway Travel Speed Reliability Performance (2019 RITIS data)

A total of 38 miles (13% of the region’s throughway network) currently do not meet the draft
mobility policy threshold. More information about the methodology and detailed results for all
segments are provided in Appendix I.

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Transit frequency

Completing a high-quality transit network is critical to meeting regional Mobility goals. Half of all
trips are over three miles, and these trips account for the majority of VMT. 10 Transit is the mode
that is best-suited to provide a climate-friendly and affordable alternative to driving for these
longer-distance trips. And transit is the most useful when it provides fast, convenient, and
accessible transit connections between activity centers. Figure 4.9 below highlights communities
that have the densities necessary to support frequent transit 11 (orange) and compares their
location with current frequent transit service (i.e., lines with peak headways of 15 minutes, shown
in purple). It also shows EFAs in light blue cross-hatching (see the Equity section for additional
discussion of this map).
Figure 4.9: Map of high-frequency transit (headways of less than 15 minutes) and transit-
supportive communities (12.5 or more people and/or jobs per acre), 2020 (Metro regional
travel model and distributed growth forecast)

10
[Link]
11
The High Capacity Transit and Regional Transit Strategies specify a threshold of 5 households or 15 jobs per
acre for communities served by frequent transit. In order to map both jobs and housing at the same scale, Figure
25 combines jobs and housing into a single measure of activity density (jobs plus residents per acre) and uses a
threshold of 12.5 jobs and/or residents per acre to identify communities that support frequent transit. The
average household in the region includes 2.5 people, so 5 households per acre is equivalent to 12.5 residents per
acre.

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If transit service is well-coordinated with land use, this map should show purple lines connecting
most of the orange/red clusters of high density. This is the case in much, but not all, of the region,
particularly in the south and west and on north/south corridors in the east side of the region.

Access to destinations

Measuring how many destinations people can access via transit and automobile within a given
travel time is a common way of understanding the overall utility of transit and driving. The RTP
aims to increase access to destinations, particularly for transit. A truly multimodal transportation
system is one in which people who travel by transit can reach the same number of jobs via transit
within a given travel time as they can via automobile. Table 4.3 below compares accessibility via
transit and automobile during peak hours and other times of the day. This analysis uses a 45-
minute travel time to measure transit access and 30-minute travel times to measure automobile
access, 12 which accounts for the time needed for people to walk between their origins/destination
and their car/transit stop and transfer between different transit routes, etc.
Table 4.3: Percent of jobs accessible by driving and by transit, by community type and time
of day, 2020 (Metro travel model and land use data)
Percent of jobs accessible within…
… a 30-minute drive …a 45-minute transit trip
During rush hour 43% 7%
Outside of rush hour 50% 6%
The good news is that driving offers good access to jobs throughout the region – the average
resident can reach almost half of the region’s job within a 30-minute commute. The challenge to
creating a multimodal system is that driving offers much better access than taking transit does.
Across all times of day, people can reach five to ten times as many destinations by auto as they can
by driving.

12
These travel times were recommended by the 2018 Transportation Equity Working Group to account for the
fact that transit trips are typically longer than automobile trips.

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SAFETY
The RTP establishes a Vision Zero goal for the Portland region to eliminate traffic-related deaths
and severe injuries by 2035. Safety analysis for the draft needs assessment is based on the most
recently available data. To track trends over time, most of the analysis uses a five-year average of
crash data because of the random nature of crashes.

Key findings from the draft Safety needs assessment include:

• From 2016 through 2020, 2,814 people were killed or experienced a life-changing severe
injury from a traffic crash in the greater Portland region, an average of 563 people per year.
• Traffic fatalities in the Portland region have been increasing for users of all modes, except for
people bicycling. Severe injury crashes are also increasing, though not as dramatically as fatal
crashes.
• Pedestrians experience a disproportionately high number of traffic deaths.
• Fatal and severe crashes are concentrated at a small number of corridors and intersections,
which the RTP refers to as High Injury Corridors and High Injury Intersections.
• There is a high level of overlap between the updated 2023 High Injury Corridors and those
identified in the 2018 RTP.
• About 40% of traffic fatalities occur on state owned highways.
• Black, American Indian and Alaska Native people experience a disproportionate number of
traffic deaths.
• Three quarters of serious pedestrian and bicycle crashes, and 65% of all serious crashes,
occur in areas identified as Equity Focus Areas.
• Safety issues are a concern for children walking and bicycling to school.

Since the 2018 RTP was adopted, city, county, regional and state partners been developing and
implementing safety action plans. Metro’s 2-Year Progress Report on the Regional Transportation
Strategy 13 highlighted this work and identified actions for the next two years, including in the
update of the 2023 RTP. While it is discouraging to see traffic fatalities and severe injuries
increase as agencies and community partners work to address safety, it often takes a while for the
impact of Vision Zero policies to become apparent. Countries and cities that have adopted the Safe
System Approach and committed to achieving zero serious crashes typically begin to see
substantial results in about 10 years, reducing traffic fatalities upwards of 40-60%. 14

13
June 2021. [Link]
14
Road Safety Annual Report 2020, International Transport Forum: [Link]
[Link]/sites/default/files/docs/irtad-road-safety-annual-report-2020_0.pdf

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Historical crash analysis

The RTP includes ambitious targets to reduce fatal and serious injury crashes by 16 percent by
2020, by 50 percent by 2025, and to zero by 2035, and identifies a trajectory for the intervening
years that allows the region to meet these targets. Table 4.4 summarizes regional progress toward
these performance measures.

Table 4.4: Federal Safety Performance Measures for Traffic Fatalities and Serious Injuries,
2016-2020 (Oregon Department of Transportation crash data analyzed by Metro)
5-year rolling averages
2016- 2016-
2011-2015 2020 2020
Performance Measure Baseline Target Actual
Number of fatalities 62 52 93
Fatalities per 100 million vehicle miles traveled 0.6 0.5 0.9
Number of serious injuries 458 384 512
Serious injuries per 100 million vehicle miles traveled 4.5 3.6 4.8
Number of non-motorized fatalities and serious injuries 113 95 129

The region is not on track to meet its targets. In fact, across all the measures summarized in Table
4.4, the region’s streets have gotten less safe since Metro established this goal and began
collecting baseline data. These findings are consistent with an interim Safety Performance report
that Metro published in 2021, 15 which was based on 2019 data. Figure 4.10 shows more detail on
recent traffic fatalities in the region, showing past data alongside projected trends and Vision Zero
targets.

15
[Link]
[Link]

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Figure 4.10: Five-year average rates of fatal crashes, 2007-2020, with trendlines and Vision
Zero targets (ODOT crash data, analyzed by Metro staff)

Figure 4.11 shows a similar view of safety data, but it captures both serious injury and fatal
crashes and breaks out results by mode to provide more detail on how rising crash rates are
affecting different travelers.
Figure 4.11: Five-year average rates of fatal and serious injury crashes by mode, 2007-2020,
with trendlines and Vision Zero targets (ODOT crash data, analyzed by Metro staff)

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Serious crashes in the Portland region have been increasing for users of all modes except for
people bicycling. Pedestrian crashes are increasing at an especially high rate.

As Figure 4.12 shows, the increase in regional fatalities is driven by an increase Multnomah
County. Fatal crashes have remained relatively flat in Clackamas and Washington Counties. The
fact that there are more crashes in Multnomah County than in Washington and Clackamas is not
surprising; half of the passenger miles traveled in the region take place in Multnomah County, and
higher travel volumes mean greater exposure to crashes, all other things being equal. However,
the recent increase in fatalities is concerning given that the proportion of travel occurring in
Multnomah County does not appear to have increased during that same period. Local analysis is
critical to understanding how local conditions, including traffic volumes, percent of people
walking and bicycling, and other factors influence traffic safety.

Figure 4.12: Annual fatalities by county, 2016-2021 (ODOT preliminary fatal crash data)
90 84
80
80
67
70
58
60 55 54
Traffic fatalities

50 44
38 37
40 35 33
30 30 32
30 25 24
22 20
20

10

0
2015 2016 2017 2018 2019 2020 2021 2022

Multnomah Clackamas Washington

Speed, alcohol, and/or drugs continue to be the most common contributing factors in severe and
fatal crashes in the region. During 2016-2020, speed was involved in 35% of fatal and 16% of
severe injury crashes, and alcohol or other drugs were involved in 38% of fatal and 14% of severe
injury crashes. However, each crash captured in the data above is complex and involves multiple
contributing factors and circumstances, including traffic exposure and built environment
variables.

Preliminary analysis reveals many safety issues near the region’s public elementary, middle and
high schools. Within a mile buffer around the average school, there are 8.1 miles of dangerous

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streets and 38 of fatal, severe, or bicycle and pedestrian injury crashes. A quarter of the region’s
schools are surrounded by streets with mostly incomplete sidewalks. 16

Crashes by mode

Crashes have different impacts on different users of the transportation system. In general, vehicle
crashes are more frequent, because most people in the region drive for most of their trips, but
crashes that involve people walking, and riding bicycles and motorcycles are more severe,
because their bodies are more exposed.

Figure 4.13 compares fatal crashes by mode to all crashes by mode.

Figure 4.13: All crashes and fatal crashes by mode, 2016-2020 (ODOT data, analyzed by Metro
staff)

As this chart illustrates, traffic deaths disproportionately impact people who walk, bicycle and
ride a motorcycle. Pedestrians experience the most disproportionate impact. Auto-only crashes
comprise 94% of all crashes and 41% of all fatal crashes, whereas pedestrian crashes make up 2%
of all crashes and 38% of all fatal crashes. In other words, pedestrians who are involved in a crash
are much more likely to die – 26 times more likely – than non-pedestrians. Pedestrian traffic
deaths are steadily increasing, are the most common type of fatal crash, and have the highest
severity of any crash type. This trend is being seen across the country and is attributed in part to
vehicles getting larger over the years. Designing safe streets, particularly on arterials, is critical to
pedestrian safety. 77 percent of serious pedestrian crashes occur on arterials.

High Injury Corridors

A majority of the serious and fatal crashes in the region, as well as the crashes that involve
vulnerable users, 17 consistently occur on a small number of roads. Metro focuses its analysis on

16
i.e., less than 50% of the sidewalks within one mile are complete. For the purposes of this analysis, a street
with a sidewalk on either one or both sides counts as “complete.”
17
When defining High Injury Corridors and Intersections, Metro accounts for pedestrian and bicycle injuries,
which are particularly likely to be severe because these travelers’ bodies are exposed to traffic. Fatal and severe
injury crashes are given a weight of ten and other injury crashes for pedestrians and bicyclists are given a weight

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High Injury Corridors, which are the corridors where 60 percent of these crashes occur, and High
Injury Intersections, which are the five percent of intersections with the highest rates of these
crashes.

Figure 4.14 shows High Injury Corridors (orange lines) and Intersections (those that are in the top
five percent for severe injury rates are marked in pink; those that are in the top one percent are
marked in red). There is a high level of overlap between the updated High Injury Corridors and
those identified in the 2018 RTP.

Figure 4.14: 2023 RTP High Injury Corridors and Intersections, 2016-2020 (ODOT crash data
analyzed by Metro staff)

The RTP recommends the use of proven safety countermeasures 18 to address High Injury
Corridors and Intersections and locally identified safety needs. Local safety action plans describe

of three. Pedestrian and bicycle involved crashes are less frequent, but compared to vehicular crashes, they are
significantly more likely to result in death or serious injury (this is true for motorcycle crashes as well, hence the
need for consideration of separating out these crashes in future analysis). This weighting factor reflects the
higher degree of risk involved in bicycle and pedestrian crashes. Metro’s methodology provides a high-level,
planning level analysis that compares all roads in the region, appropriate for identifying and prioritizing needs at
the regional scale. Supplemental local analysis, including identification of safety corridors at the county and city
geography, should also be used to identify needs and priorities in the RTP.
18
The Safety Division of the FHWA provides information on proven safety countermeasures at
[Link]

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in detail the projects that are needed to resolve safety issues at these locations and others
identified by partner agencies.

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EQUITY
RTP Equity Policy 3 directs Metro and its agency partners to “Prioritize transportation
investments that eliminate transportation-related disparities and barriers for historically
marginalized communities, with a focus on communities of color and people with low incomes.”
Through extensive outreach, Metro has heard that these communities need fast, frequent,
affordable. and reliable transit connections to key destinations and safer walking and biking
infrastructure. The Needs Assessment evaluates equity through that lens and finds:
• The Portland region continues to grow more racially and ethnically diverse.
• The region is aging. The share of people 65 and older is growing while all other age groups are
declining. However, people under 44 will continue to be in the majority.
• The COVID-19 impact had particularly severe and long-lasting impacts on people of color and
workers with low incomes.
• Regional transportation agencies can advance equity by investing in transit service and safe
biking and walking infrastructure in Equity Focus Areas (EFAs), which are communities with
concentrations of people of color, people with low incomes, and people with limited English
proficiency.
• The region has made significant progress in improving transit service and bike/ped
infrastructure in EFAs, but not enough to address deep-seated inequities. Transit still offers
much less access to destinations than driving does, and serious crashes are still concentrated
in EFAs.

History of discriminatory planning in the Greater Portland region

The disparities described in this chapter are the result of specific decisions made over the years
by governments, institutions, and the public to marginalize people of color and other groups.
Many of these decisions had generational impacts that continue to contribute to the inequities we
see today. Knowing this history is crticial to fully understanding and resolving these diparities. 19

Oregon has a unique history of passing laws that discriminate against Black people. In the 1840s
and 50s, State legislative bodies passed a series of laws that made it illegal for Black people to live
in Oregon, and Oregon was the only state with such laws in its constitution. These State policies,
along with federal policies such as the Japanese Internment law of 1942, as well as a series of
actions that the real estate industry and government agencies took to concentrate people of color
in particular neighborhoods and disinvest in those neighborhoods, all contribute to the region’s
history of discriminatory planning. Throughout the last century, people of color and people with
lower incomes have been impacted by planning decisions that targeted struggling areas for
development. Major roads and freeways were often built on top of already disadvantaged

19
The information in this section is adapted from Metro’s Equitable Transporation Funding Research Report:
[Link]
[Link].

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communities to avoid affecting wealthy, white neighborhoods. These decisions split
neighborhoods, displaced families, permanently damaged communities, and even led to higher
rates of air pollution and chronic illness. 20

Figure 4.15 provides a visual timeline of discriminatory planning in the greater Portland region
from the late 19th century to the present, and also chronicles more recent efforts to restore justice.
In the graphic, gold circles reflect the shift away from discrimination and the beginnings of a path
towards equity.

20
Oregon Metro. (2022). “2023 Regional Transportation Plan Update: Work Plan.”

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Figure 4.15: Timeline of discriminatory planning and advancements toward equity in the
Greater Portland region

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Beginning in the 1920s, local governments throughout the region used exclusionary zoning to
prevent Black, Indigenous, and other people of color from owning property in certain
neighborhoods, was common practice in the greater Portland region. 21 The real estate industry –
including realtors, bankers, appraisers, and landlords – also used redlining, discriminatory
lending, and restrictive covenants to steer people of color toward certain neighborhoods and
exclude them from others. 22 Local governments also used single-family zoning to support these
practices by forcing multi-family development into segregated neighborhoods. 23 Agencies
significantly increased the amount of land zoned for single-family housing throughout the 1930s,
1940s, and 1950s. By the end of this period, multi-family zones accounted for only 5% of
residentially zoned lands. These practices created concentrated people of color and people with
lower incomes in neighborhoods that were vulnerable to disinvestment, industrial uses,
infrastructure development, and urban renewal plans. 24

Urban renewal, whereby government agencies razed and redeveloped ‘blighted’ areas in their
jurisdictions, swept the United States in the mid-twentieth century. Local governments used this
power to implement sweeping redevelopments in marginalized, often Black, communities without
consulting residents. The new developments that were created through urban renewal took on
many forms: transportation infrastructure, large-scale multi-family housing, event centers, parks,
and office buildings, etc. The agencies who led these projects often systematically displaced
former residents and bought out landowners for a fraction of their property’s value. Portland and
many other cities across the U.S. have a long and well-documented history of urban renewal
projects – including some that were approved by voters, such as the development of Memorial
Coliseum in the heart of Portland’s black community. 25

Portland’s Albina neighborhood developed into a thriving business district after the population
boom throughout World War II and became a haven and area of opportunity for Black people
living in the city. This sudden population growth also led to the development of Vanport in North
Portland, which was initially built to provide temporary housing for shipyard workers. Many of
these workers were African American and were unable to find other suitable nearby housing. In
1948, Vanport was destroyed by a flood, taking numerous lives and forcing residents to relocate,
many of whom moved to Albina. In the 1950s, federal, state and local transportation agencies built
the Interstate 5 freeway through Albina, and local governments razed other parts of Albina to
build Memorial Coliseum and Emanuel Hospital, destroying homes and businesses, forcing
displacement, and tearing the fabric of the neighborhood apart.

21
[Link]
22
Department of Land Conservation and Development. (2022). “Housing Choices (House Bill 2001).”
23
Department of Land Conservation and Development. (2022). “Housing Choices (House Bill 2001).”
24
Hughes, Jena. (2019). “Historical Context of Racist Planning.” Bureau of Planning and Sustainability.
25
Killen, John. (2015). “Throwback Thursday: 60 years ago, Portland began urban renewal plan for South
Auditorium district.” Oregon Live.

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Exclusionary zoning and racial segregation still influence where people live and work today.
Exclusive single-family zoning was eliminated in the majority of Oregon through the passing of
House Bill 2001. As of June 2022, cities with a population over 25,000 and cities in the greater
Portland region must allow duplexes, triplexes, quadplexes, cottage clusters, and townhouses in
residential areas. Yet much still needs to be done to untangle the legacy of displacement and
damage inflicted in years past. Even with the progress made since the late 1960s, the
disproportionate impact of lack of transportation access to opportunities for people of color and
people with low-income persists. Gentrification, population growth, and increasing demands on
housing continue to threaten to further destabilize people of color and low-income communities.
Implementing the recommendations in this report and continuing efforts to advance racial and
income equity in future RTPs, plans, and programs, are critical to righting the wrongs of the
past. 26

Demographic and economic changes

People of color make up an increasing share of the regional population. The portion of residents
who identify as people of color has been increasing steadily over the past several decades; from
under one percent in 1960 to 28 percent in 2020. Figure 4.16 shows how the racial and ethnic
makeup of the region’s population changed between 2000 and 2020.

26
Much of the existing academic literature and subsequent discussions are around the City of Portland, however
the patterns of exclusion and discrimination are well established to have been rampant across the country,
Oregon, and the greater Portland region.

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Figure 4.16: Population by race and ethnicity27 in the Portland region and surrounding
counties, 28 2000 and 2020 (U.S. Census)

Over the 20-year time span captured in the figure above, the share of regional residents who
identify as people of color grew from 18 percent to percent. This change was driven primarily by
growth among Latines, Asian Americans and Pacific Islanders, as well as an increasing number of
people who identify as “other.” 29

Figure 4.17 shows Metro’s forecasts for how the share of population in different age groups will
change between 2020 and 2040.

27
The U.S. Census uses different terms for race and ethnicity than Metro does. This figure uses the terms
commonly used by Metro for brevity and consistency, but respondents defined themselves using the options
presented by the Census, which include: White alone; Black or African American; Asian, Native Hawaiian, and
Pacific Islander; Hispanic or Latino; American Indian and Alaska Native; and Other.
28
For consistency with regional and state population forecasts, Metro uses a broader 7-county region
(Clackamas, Clark, Columbia, Multnomah, Skamania, Washington, and Yamhill counties) in its demographic data.
29
The Census Bureau increased the number of options for people to classify themselves as members of two or
more races between 2000 and 2020. For the purpose of comparing data from 2020 with data from 2000, we use
similar race/ethnicity categories as were used in 2000 – combining Asian people and Pacific Islanders in spite of
the fact that the Census Bureau now differentiates between the two, and including people who identify as being
part of two or more races in the “other” category.

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Figure 4.17: Current and forecasted population by age cohort in the 7-county Greater
Portland region, 2020 and 2045 (Metroscope)
<25

-2.3%
25-44

-1.6%
Age Cohort
45-54

-0.9%
55-64

-0.3%
65+

+5.2%

0% 10% 20% 30% 40%

2020 2040

Just like the national population, our region’s population is aging, and the share of people over 65
is projected to grow by 5 percent, while shares of all other age groups are declining. However, the
two youngest age groups – people under 25 and people 25 to 44 – are projected to remain the two
largest age groups in the region. By 2040, close to 50% of the region’s population will either be
under 25 or over 65. Though these two groups have very different transportation needs, they also
have some important similarities – lower rates of commuting by auto, high proportions of people
who cannot drive due to age or disability, and lower participation in the labor force, which means
that their travel patterns are less likely to be driven by commuting. 30

Inequities in housing and employment

The 2018 RTP undertook a wide-ranging review of data and research on equity, both nationally
and in the Portland region, and highlighted several inequities in different marginalized groups’
access to housing and jobs.
• People with low incomes and most people of color (with the exception of Asian Americans)
and people with low incomes are significantly less likely to own a home than white people.
• People of color are being displaced to areas of the region that lack good access to
transportation options, jobs, and other important destinations.
• People of color and people with low incomes can access fewer jobs within a typical commute
distance than white people.

30
[Link]

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Many of these inequities were exacerbated by the COVID-19 pandemic. The health impacts of the
pandemic fell significantly upon the region’s Latine population, and its economic impacts were
particularly damaging for people with low incomes – both workers, who were more likely to lose
their jobs, and students, who experienced greater learning loss due to the pandemic.

Significant disparities in access to jobs and housing persist. For example,

Figure 4.18 shows how homeownership rates are still much lower for most non-white racial and
ethnic groups and for households earning below $75,000 per year than they are for white people.

Figure 4.18: Homeownership rates by race and income for Multnomah, Washington and
Clackamas Counties, 2020 (American Community Survey)

White 64.6%

American Indian and Alaska Native 54.7%

Black or African American 33.1%

Asian 66.8%

Native Hawaiian or Pacific Islander 34.6%

Hispanic or Latino 39.8%

Other 36.1%

Two or more races 46.4%

Low Income 46.4%

Public agencies are working to address these disparities by creating more affordable housing,
supported by a regional affordable housing bond measure, which was passed by voters in 2018. The
bond aims to fund the construction of 3,900 designated affordable housing units across the region,
with a focus on providing homes for people of color. Though the bond measure represents
significant progress in building affordable housing, it only provides a small portion of the roughly
48,000 units in the region that Metro estimates are necessary to meet the region’s needs.

Homeownership rates can affect how communities respond to the transportation projects that are
the focus of the RTP. Some transportation projects – in particular, new light rail lines and
bicycle/pedestrian trails – can potentially increase the value of adjacent properties. This benefits
homeowners who live nearby, but it can create higher housing costs and displacement risks for
people who rent. This means the groups shown as having low homeownership rates in

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Figure 4.18 are more likely to see new transportation investments as threatening their ability to
remain in their communities.

The inequities created by the COVID-19 pandemic become very visible when comparing
employment patterns for lower- and higher-income workers. Overall, the U.S. experienced
historically high levels of unemployment in summer 2020, immediately following the onset of the
COVID-19 pandemic. By Spring 2022, the overall unemployment rate had fallen to levels that
could be considered low even by pre-pandemic standards. However, this broad trend masks
significant differences in the employment rate between workers with lower incomes and those
with higher incomes. Figure 4.19 shows unemployment rates over the past three years for both
workers who more than the median wage (approximately $30 per hour, or $60,000 per year) and
workers who earn less.

Figure 4.19: Regional employment rates for workers earning above and below the median
wage (indexed to January 2020) January 2020 – August 2021 (Earnin, Intuit, Kronos and
Paychex data, analyzed by Cambridge Systematics for the Commodities Movement Study)

As of August 2021, the employment rate for workers in the Portland region who earned above the
median wage had increased by 1.2 percent over pre-pandemic (January 2020) levels, whereas the
employment rate for workers earning below the median wage fell by 29.8 percent. In other words,
the pandemic opened up a 30-point employment gap between workers earning above the median
and workers earning below the median wage.

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Transportation needs in Equity Focus Areas

Equity Focus Areas were designed to guide transportation plans toward focusing on communities
with the greatest needs, and to benefit as many people in need as possible, while accounting for
regional growth and change. They highlight the communities in the region with the highest
densities of people of color, people with low incomes, and people who speak limited English.

Figure 4.20 shows the updated Equity Focus Areas used in the 2023 RTP, including which of the
three populations included in the definition of EFAs are concentrated within each EFA, and uses
shading to illustrate how these different populations overlap with each other. These EFAs are
based on 2016-20 American Community Survey data (for income and English proficiency) and
2020 Census data (for race). Appendix C provides more detail on the data sources and calculations
used to create and update EFAs.

Figure 4.20: 2023 RTP Equity Focus Areas, (Census and American Community Survey data,
2016-2020)

EFAs are located throughout the region, and there are large concentrations of all three EFA
populations in East Portland and Multnomah County and along Tualatin Valley Highway in
Washington County. These are largely the same areas that were highlighted during the 2018 RTP

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equity analysis. 31 Directing transportation investments – particularly projects designed to meet
the needs of the people they serve – toward the EFAs that are highlighted above helps to meet this
goal.

The equity policies adopted in the 2018 RTP direct Metro and partner agencies to both learn more
about marginalized people’s transportation needs 32 and also to act on what they learn. 33 Since the
2018 RTP update, Metro has conducted extensive outreach to people of color, people with low
incomes, and other marginalized people to better understand their transportation needs through
the development of the 2020 regional transportation funding measure, the Regional Mobility
Policy update, and other processes. 34 Metro has consistently heard that these communities need
safer and more accessible travel options – specifically better transit service and safer streets for
bicycling and walking, including:
• More fast, frequent and reliable transit service for all types of trips (including at off-peak
travel times)
• More affordable transit that connects people to the places and things they need to thrive.
• Better conditions for walking and biking, including adequate street lighting, protected
crossings and crossing signals, particularly to improve access to transit.
• Connected and separated walking and biking infrastructure.

Access to transit and to destintaions

Figure 4.21, which is discussed in more detail in the following section on Mobility, shows where
gaps in the regional transit network are located. These gaps show places where planned transit has
not yet been built. The map differentiates between gaps in frequent (thick lines) and regular (thin
lines) transit service, and between gaps in service that are based on the financially constrained
network (i.e., gaps that the region currently has identified funding to complete, shown in green) and
those that are based on the network vision (i.e., gaps that the region has not yet identified funding
to complete, shown in purple). It overlays these gaps with Equity Focus Areas, which are shown in
violet cross-hatching.

31
See the Needs Assessment memo that was shared with TPAC as part of the July 13 meeting packet (beginning
p. 14) for further discussion of how and why Equity Focus Areas changed as they were updated.
32
Policy 5: “Use engagement and other methods to collect and assess data to understand the transportation-
related disparities, barriers, needs and priorities of communities of color, people with low income and other
historically marginalized communities.”
33
Policy 3: “Prioritize transportation investments that eliminate transportation-related disparities and barriers
for historically marginalized communities, with a focus on communities of color and people with low income.”
34
[Link]
[Link]

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Figure 4.21: Regional transit network gaps (2018 RTP networks, partner agency data)

There are many places where transportation agencies have planned to deliver the frequent transit
that EFA residents say they need, but where those projects are not being implemented – i.e.,
where the thick green and purple lines shown in the figure above overlap with the Equity Focus
Areas. Completing these transit investments – particularly those shown in green, which can be
built with available funds – would address pressing equity needs while also advancing mobility
and climate outcomes.

Figure 4.22 below takes a different view of the transit system. Instead of using planned transit
lines as a basis for identifying needs, Figure 4.22 highlights communities that have the densities
necessary to support frequent transit 35 (orange) and compares their location with current
frequent transit service (i.e., lines with peak headways of 15 minutes, shown in purple). It shows
EFAs in light blue cross-hatching.

35
The High Capacity Transit and Regional Transit Strategies specify a threshold of 5 households or 15 jobs per
acre for communities served by frequent transit. In order to map both jobs and housing at the same scale, Figure
25 combines jobs and housing into a single measure of activity density (jobs plus residents per acre) and uses a
threshold of 12.5 jobs and/or residents per acre to identify communities that support frequent transit. The
average household in the region includes 2.5 people, so 5 households per acre is equivalent to 12.5 residents per
acre.

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Figure 4.22: Map of high-frequency transit (headways of less than 15 minutes) and transit-
supportive communities (12.5 or more people and/or jobs per acre), 2020 (Metro travel
model, 2018 RTP transit network and distributed growth forecast)

People living within EFAs have said that they need better transit connections between their
communities and their destinations. If these connections were in place, the map above would
likely show purple lines connecting most of the orange/red clusters of high density within the
light blue EFAs. This is the case in much of the east side of the region – though there are notable
gaps on several north/south corridors – but not as much in EFAs on the west side of the region.
This is in part because the built environment in East Portland and Multnomah County has many
transit-supportive characteristics, such as a well-connected grid of arterials and relatively high-
density residential areas. There may be further opportunities in the long term to better configure
the transit network to benefit current and prospective transit riders who live in EFAs.

In addition to identifying where there are needs and opportunities to provide more equitable
transit service, the RTP also examines whether the transit system provides the convenient and
useful connections that EFA residents have asked for. Measuring how many destinations a
traveler can access within a given travel time via different modes has been established as a best
practice for understanding and comparing how useful different modes are for different groups of
people. This analysis can answer two questions about transit equity.

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Does the transit system provide equitable service to marginalized people? If so, people
living in Equity Focus Areas should be able to reach the same number of other jobs (or more) as
people living in other communities.

Is transit a competitive alternative to driving? Both community feedback and research stress
that people of color and people with low incomes are more likely to rely on transit. It follows that
an equitable transportation system is one in which people who travel by transit are not faced with
longer, less convenient trips than people who drive – in other words, that people should be able to
reach the same number of jobs (or more) via transit as they should via automobile in the same
travel time. This is a challenging goal to meet given how built-out the road network is, but meeting
this goal would have far-reaching benefits – not just for equity, but mobility and climate.
Figure 4.23 compares access to jobs between modes (transit versus auto) and community types
(EFAs vs. non-EFAs) for the RTP base year of 2020. 36 Jobs are not just commute destinations –
grocery stores, medical offices, and schools are also places of employment, so jobs are a proxy for
many different types of destinations that draw many different types of trips. 37 Metro tested many
different measures of access to jobs by income and to community places such as grocery stores,
libraries, schools, medical offices, and community services and has found the same patterns in
access to these important destinations as for access to all destinations. Similarly, Metro tested
results for both peak and off-peak travel and found that off-peak results showed the same trends as
the results for rush hour, which are shown below.

36
This analysis uses a 45-minute travel time to measure transit access and 30-minute travel times to measure
automobile access, which accounts for the time needed for people to walk between their origins/destination and
their car/transit stop and transfer between different transit routes, etc.
37
[Link]

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Figure 4.23: Percent of jobs accessible by driving and by transit by community type, 2020
(Metro travel model, 2018 RTP transit network, and land use data)

The results above show that people living in EFAs enjoy significantly better access to destinations
via transit (and to a lesser extent, via driving) than people living in other communities. This is
likely because many communities of color and much of the region’s naturally occurring affordable
housing stock are located in regional centers that have long been key points in the transit
network, but it also reflects more recent efforts by transit agencies to focus on serving
marginalized communities even as these communities relocate within the region.

Figure 4.23 also shows the extent to which driving offers better access than taking transit does.
Across all communities and all times of day, people can reach five to ten times as many
destinations by auto as they can by driving. Though the Portland region has an extensive transit
system relative to many other Metro areas, significant parts of the region are not served by transit
and (as shown in Figure 4.22 above) do not have the land uses necessary to support frequent
transit. Extending and improving transit service can help improve transit access to destinations,
and land use changes that create clusters of activity that support high-quality transit can also
make a big difference.

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Safe conditions for walking and bicycling

Other than the need for better transit service for EFAs, the main need that people of color and
people with low incomes have expressed in Metro’s outreach is the need for safer and more
convenient walking and biking facilities, particularly near transit stations. Bicycle and pedestrian
gaps are mapped in the following section on Mobility and Climate, and these maps show which
gaps are located in EFAs. Figure 4.24 summarizes how complete the bicycle, pedestrian and
transit networks are (including bicycle and pedestrian facilities near transit38) in EFAs versus in
other areas.
Figure 4.24: Pedestrian, bicycle and trail network completion for EFAs and non-EFAs (2018
RTP networks and current partner agency data)

The region has made more progress completing the active transportation network, and also in
providing bicycle and pedestrian connections to transit, in EFAs than in other communities.
However, significant portions of the network still need to be completed for everyone in the region
to benefit from high-quality walking and biking connections. The results above also reflect slow
but steady progress in building out the region’s active transportation network. The pedestrian
and bicycle networks, both region-wide and in EFAs, are 3% more complete than they were when
Metro last conducted for 2015, and the trail network is 6% more complete.

38
Research has shown that people are willing to travel further to access high-quality, frequent transit than they
are normal bus service. The transit access analysis for the 2018 RTP used different travelsheds to examine access
to different types of transit: ½ mile for light rail, 1/3 mile for streetcar, and ¼ mile for bus. This analysis uses
these same travelsheds to identify bicycle and pedestrian facilities near transit.

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In spite of this progress, crashes are still concentrated in Equity Focus areas, and are particularly
likely to involve BIPOC people. Metro analyzed crash data from the Fatality Analysis Reporting
System (FARS), which includes race and ethnicity for traffic fatalities, 39 to assess the impact of
fatal crashes on different populations in Multnomah, Washington, and Clackamas counties.
Normalizing by population, Black, American Indian and Alaska Native people experience double
or nearly double the number of traffic fatalities that other groups experience. This finding is
consistent with analysis conducted by ODOT in 2019. 40

As Figure 4.25 shows, three quarters of serious pedestrian and bicycle crashes and 65% of all
serious crashes occur in Equity Focus Areas (see the Equity section below for information on
these areas). Addressing safety in these areas is critical to making the entire transportation
system safer and more equitable.

39
FARS is a nationwide census providing yearly data regarding fatal injuries suffered in motor vehicle traffic
crashes. [Link]
40
Josh Roll, Nathan McNeil, Race and income disparities in pedestrian injuries: Factors influencing pedestrian
safety inequity, Transportation Research Part D: Transport and Environment, Volume 107, 2022, 103294, ISSN
1361-9209, [Link] This study employs an
ecological analysis to explore pedestrian safety disparities in Oregon, incorporating crash data, roadway and land
use factors, and sociodemographic data. Lower median income and higher proportions of BIPOC residents are
found to be associated with more pedestrian injuries. These variables may be proxies for other traffic exposure
and deficient built environment variables, which may reflect a lack of historic investment in the neighborhoods
where these populations are concentrated.

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Figure 4.25: Percent of average annual traffic fatalities and severe injuries in Equity Focus
Areas, by mode, 2016-2021 (ODOT crash data, analyzed by Metro staff)

Though bicycle and pedestrian infrastructure is generally equitably distributed – in fact, the
region has a slightly better track record of completing planned infrastructure in EFAs than in
other communities – a higher percent of pedestrian crashes are still occurring in EFAs. One
explanation for this is that other factors besides the presence of trails, sidewalks and bicycle
infrastructure helps reduce crashes for vulnerable users, but other factors, such as the design and
posted speed of travel lanes, also influence the overall safety of streets.

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ECONOMY
Transportation and the economy are deeply interrelated. The transportation system plays a
critical role in connecting workers to jobs in allowing employers access to the talent that they
need, and shifts in the economy often lead to changes in how people and goods travel through the
region. The RTP aims to support the region’s economy by improving connections to jobs and also
to respond to how transportation patterns are changing in the region.

This section examines how the region’s economy is growing and changing, how workers and
goods move through the region, and how well the transportation system currently serves
employment centers. Key findings include:
• Over the past decade, the Portland region’s economy has grown stronger relative to the rest of
the U.S., and the region has experienced slightly lower-than-average unemployment.
• Trade, transportation and utilities; professional and business services; and education and
health services continue to be the largest employment sectors in the region.
• The majority of the region’s jobs are located in the centers and employment / industrial areas
identified by the 2040 Growth Concept.
• Over 45 percent of workers in the 3 Metro-area counties work in a different county than
where they live.
• The number of commuters who travel into the region from surrounding communities is
growing, but the majority of commute trips in the region still begin and end within Clackamas,
Multnomah, and Washington counties.
• The majority of the region’s freight still moves by truck, but high-value freight is more likely to
use other modes.
• Anyone who is able to commute by auto enjoys reasonably good access to jobs, but transit
does not provide nearly the same level of access as driving does. People can reach five to ten
times as many jobs by auto as they can by transit.
• Active transportation networks are generally more complete within regional centers and near
transit.

Jobs and growth

The 2018 RTP described a region that was growing rapidly into a major U.S. metropolitan area,
with large numbers of people from other cities migrating to Greater Portland. It described some of
the challenges associated with that growth, including growing congestion, rising housing costs,
and increased displacement of people of color and people with low incomes to neighborhoods
that are harder to serve with transit and other transportation options. These forces still continue
to shape the region, though there are signs that growth may be slowing.

Between 2015 (the base year for the 2018 RTP update) and 2020 (the base year for the 2023 RTP
update, the region grew significantly – by 135,000 people (an 8.4% increase), 57,000 households

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(8.9%) and 90,000 jobs (10.1%). 41 This growth is projected to continue, though not necessarily at
the same rapid rate as the region saw during the previous decade. Even prior to the pandemic,
State economists and demographers predicted that population growith in Oregon and our region
would be slower during the 2020s than it had been during the 2010s, and in 2022 the Census
Bureau estimated that the State and region’s population declined for the first time in years. 42
Generally, slower population growth also means slower economic growth, and recent State
analyses find that businesses in Oregon are having a harder-than-ever time filling vacant
positions.

Figure 4.25 shows historical unemployment rates for the greater Portland region, which in this
and the following charts include Clackamas, Clark, Columbia, Multnomah, Skamania, Washington,
and Yamhill counties – the 7-county region that is commonly used in reporting on the region’s
economy because it captures the full extent of potential commutes to and from our region’s job
centers.
Figure 4.26: Unemployment rate in the greater Portland region vs. the U.S., 2000-22 (Oregon
Employment Department, 2022)

This chart highlights three different phases in the region’s recent economic growth. Prior to 2011,
(phase 1) the region generally experienced higher unemployment rates than the national average

41
Metro Regional Travel Model.
42
[Link]

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compared to the U.S. as a whole, particularly during recessions. Between 2011 and 2020 (phase 2)
the region has consistently had lower unemployment rates than the rest of the country. In 2020
the COVID-19 pandemic triggered an exceptional recession, both in the region and nationwide,
which receded much more quickly than prior recessions (phase 3). Overall, the region’s economy
has grown stronger relative to the rest of the U.S, and since 2011 the region has consistently had
lower unemployment rates than the rest of the country. These recent low unemployment rates are
particularly remarkable since they are happening at a time when regional participation in the
labor force is increasing, which normally causes unemployment to rise. Between 2011 and 2020,
the labor force participation rate in the broader economic region grew or remained constant for
every age group of workers, whereas in the U.S. as a whole it fell for many age groups. 43 Figure
4.26 also highlights the exceptional nature of the recent recession triggered by the COVID-19
pandemic, which receded much more quickly than prior recessions. During the prior two
recessions in 2002-04 and 2009-14 both the regional and national unemployment rates remained
above six percent for several years, whereas they only remained at such high rates for a single
year during the most recent 2020 recession.

Figure 4.27 shows the industries in which people hold jobs within the same 7-county region
discussed above.
Figure 4.27: Employment by industry in the greater Portland region (Oregon Employment
Department, 2019)

43
The Columbia-Willamette Workforce Collaborative, State of Workforce Labor Report, 2023.
[Link]
latest-state-workforce-report

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According to this data, which is from 2019, the most recent non-pandemic data was available,
Transportation, Professional Services, and Education and Health are the largest employment
sectors in the region, collectively accounting for half of the jobs. Those sectors also dominated the
region’s economy according to the 2015 data that was included in the last RTP update.
Collectively those major employment sectors – along with Information, which is a fast-growing
sector in the current economy – have accounted for most of the region’s recent economic growth.
The pandemic led to a seven percent overall decrease in regional employment in 2020, but all of
the sectors shown above have recovered from their losses except the leisure and hospitality
sector, which suffered nationwide losses as travel and in-person events ceased and continues to
recover slowly due to low levels of tourism.

Where jobs are located

Figure 4.28 shows where jobs are currently located in the Portland region. Census tracts with
more jobs are shaded in darker green on the map, and tracts with above average numbers of jobs
are outlined in bold.
Figure 4.28: Number of jobs by Census Tract, 2021 (Economic Value Atlas: Esri/DataAxle)

Jobs are distributed throughout the region, but there are higher-than-average concentrations of
jobs in the centers of larger cities in the region, including Portland, Beaverton, Gresham, Hillsboro,
and Tigard; and in major employment or industrial areas such as the Columbia Corridor, the 224
Corridor, Tualatin-Sherwood, and North Hillsboro.

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The 2040 Growth Concept, shown in

Figure 4.29 below, designates where and how the region is planned to grow over the next several
decades. It includes a network of regional and town centers (shown in pink) and employment
lands (shown in blue). These centers and employment lands include the areas that are currently
rich in jobs shown in Figure 4.28 above, as well as areas where the region is planning to develop
space for jobs in the future.
Figure 4.29: 2040 Growth Concept Map

The 2040 Growth Concept helps to identify the many different job and activity centers in the
region that need to be included in this web of connections. At the same time, local pedestrian, bike
and transit connections are necessary in and around these centers to give people safe, affordable
and healthy options for shorter trips to shops, services, and other non-work destinations.

How workers move through the region

Between 2015 (the base year for the 2018 RTP update) and 2020 (the base year for the 2023 RTP
update, the region grew significantly – by 135,000 people (an 8.4% increase), 57,000 households
(8.9%) and 90,000 jobs (10.1%). 44 This growth is projected to continue, though not necessarily at

44
Metro Regional Travel Model.

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the same rapid rate as the region saw during the previous decade. As Greater Portland continues
to evolve into a major metropolitan area, with increasing housing prices and a more specialized
economy, commute patterns are becoming more complex. Figure 4.30 shows how workers
commute within and between counties in and around the region. It includes data for counties that
are outside the region that have significant amounts of workers commuting to or from the Metro
region.
Figure 4.30: Where workers live and commute in the Greater Portland region and
surrounding counties, 2019 (Census LEHD Origin-Destination Employment Statistics)

This figure highlights how commute patterns in the region are increasingly complex and long-
distance. Over 45 percent of workers in the 3 Metro-area counties work in a different county than
where they live. Travel patterns like those shown above are typical of major metropolitan areas
with large populations, clusters of specialized jobs, and rising housing prices that limit many
people from living close to jobs. Most of the longer-distance commute trips highlighted in Figure
4.30 are made by car; frequent and high-capacity transit routes are needed to provide affordable,
congestion-free commute alternatives as the region grows.

Though commute patterns are growing more complex and the share of long-distance commutes is
increasing, the majority of commute trips pass through the heart of the region – which means that

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investing in the transportation system in the central areas of the region continues to be critical to
supporting the region’s economic growth. Over 70 percent of the commutes within the 7-county
economic region discussed above begin and end within the 3 Metro-area counties (Clackamas,
Multnomah and Washington). Multnomah County is particularly central to the region’s economy –
it is the only county that experiences significant population gains during the working day.
Washington County has roughly the same amount of workers commuting into the county and
workers commuting out of the county, and Clackamas County loses more workers than it gains
during the day. These numbers help to contextualize some of the findings elsewhere in this report
that show Multnomah County having more crashes, more congestion, and more transit service
than other counties; these issues are due in part to the fact that Multnomah County has more
people commuting to, from, and through it. This is not to dismiss the growth in long-distance
commutes over the past decade; the number of workers traveling into the region from counties
such as Columbia and Marion increased significantly between 2015, when Metro last reviewed
this data, and 2019. However, even with this growth there are roughly 36,000 of these long-
distance commutes happening every day, compared to the 800,000 daily commutes within the
region’s core.

How goods move through the region

Keeping freight moving is a critical part of regional mobility. Most of the products we buy come
from someplace else, and many of the goods we produce in Oregon move on to markets in other
states and countries. The global economy is expanding rapidly, and our region’s ability to move
products to far-flung markets depends on an efficient transportation system. With its location on
Interstate 5, the West Coast artery of the Interstate Highway System, the greater Portland region
is ideally situated to move freight by truck. But with Portland International Airport, two Class 1
railroads (mainline railroads Union Pacific and Burlington Northern/Santa Fe), the southern
terminus of the 400-mile Olympic Pipeline, and a location at the confluence of two major rivers
with ocean access and several marine terminals, the region’s freight transportation system is a
multimodal network.

Figure 4.31 and Figure 4.32 summarize the value and weight of the goods that move through the
region by mode. High-value goods make up an increasing share of the freight that moves through
the region, and they sometimes take different routes and modes than other goods in order to
arrive at their destinations safely and on time. Distinguishing between value and weight helps to
identify how goods of different value are moving through the transportation system.

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Figure 4.31: Weight of outbound freight by mode in the Greater Portland Region, 2017
(Freight Analysis Framework data)
Multiple modes & mail All Other Modes <1%
11%

Water
2%

Rail
9%

Truck
78%

Figure 4.32: Value of outbound freight by mode in the Greater Portland Region, 2017
(Freight Analysis Framework data)

All Other Modes <1%

Multiple modes & mail

23%

Air (include truck-air)

7%

Water Truck
4% 64%
Rail
2%

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The majority of the region's freight, whether by value or weight, is moved by truck. High value
freight is less likely to move by truck and rail, and more likely to use multiple modes, mail, water,
and air. As Oregon’s economy shifts from bulk products like farm exports and timber to lighter
products like semiconductors, electronics and specialized machinery, improving freight
connectivity to the airport and other intermodal facilities will help keep goods moving through
the region.

Connecting the region’s employment centers

The RTP goals envision a region where employment centers are accessible through a variety of
multimodal connections. This means that the 2040 centers and employment/industrial lands
shown above in Figure 4.29 should be well-connected by vehicle and transit because commutes
are often the longest trip people take in a day, and these are the modes best suited for long trips. It
also means that these centers need to include solid bicycle and pedestrian infrastructure and a
mix of land uses so that people can get meals or run other errands without needing to drive.

This table is also included above in the Mobility section, which provides more details on the
methodology and how access to destinations is related to land use patterns and the transportation
system.

Table 4.5 below examines how accessible jobs are by driving and transit, comparing access to jobs
via transit and automobile during peak hours and other times of the day. This table is also
included above in the Mobility section, which provides more details on the methodology and how
access to destinations is related to land use patterns and the transportation system.
Table 4.5: Percent of jobs accessible by driving and by transit, by community type and time
of day, 2020 (Metro travel model and land use data)
Percent of jobs accessible within…
… a 30-minute drive …a 45-minute transit trip
During rush hour 43% 7%
Outside of rush hour 50% 6%

Anyone who is able to commute by auto enjoys reasonably good access to jobs – the average
driver can reach roughly half of the region’s jobs outside of rush hour. But transit does not
provide nearly the same level of access as driving does; people can reach five to ten times as many
jobs by auto as they can by driving. Adding high-frequency transit service that connects the
neighborhoods where workers live to employment centers is critical to meeting the RTP’s goal of
providing multimodal connections to work.

Table 4.6 below compares how complete the bike/ped network is 45 in key 2040 geographies –
centers, station communities, mixed-use communities, and employment/industrial lands – versus

45
Metro distinguishes between on-street bicycle and pedestrian gaps in facilities like bike lanes and sidewalks
and off-street bike/ped gaps in facilities like trails. On-street facilities are generally needed to provide good
active transportation connections in centers, near transit, and along arterials, whereas off-street facilities provide
longer-distance connections between these areas. Table 4 focuses on the on-street bike/ped network.

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in the region as a whole. Meeting the economy goal in the RTP means prioritizing active
transportation investments in these centers.
Table 4.6: Bike/ped system completeness by location within the region (2018 RTP networks
and current partner agency data)
Total planned Number of miles Percent of miles
Network miles completed completed
Region-wide
Pedestrian network 1,040 597 57%
Bicycle network 1,149 626 55%
Trail network 560 245 44%
Motor vehicle network 1,171 1,146 98%
Within 2040 centers
Pedestrian network 181 141 78%
Bicycle network 168 112 66%
Within station communities outside above
centers
Pedestrian network 108 72 67%
Bicycle network 123 69 56%
Within mixed-use zoning outside above centers &
station communities
Pedestrian network 136 106 78%
Bicycle network 114 75 66%
Within employment and industrial areas outside
above centers, station communities, and mixed-
use zoning
Pedestrian network 147 60 41%
Bicycle network 133 73 55%

Consistent with the 2040 Growth Concept, active transportation networks are generally more
complete within regional centers and near transit. However, several important gaps remain in
these areas, which can be seen in the “gap maps” in the Mobility section.

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CLIMATE
Climate change is the defining global challenge of the 21st century. And as the recent increase in
climate-induced wildfires and extreme weather events has demonstrated, it is likely to have
significant impacts on the Portland region. In 2009, the Oregon Legislature set goals to reduce
greenhouse gas (GHG) emissions 10 percent below 1990 levels by 2020 and at least 75 percent
below 1990 levels by 2050.46 More recently, Executive Order 20-04 set new emissions reduction
goals that call for the State of Oregon to reduce its GHG emissions at least 45 percent below 1990
emissions levels by 2035 and at least 80 percent below 1990 levels by 2050.47 These updated
goals are consistent with the reductions that climate scientists now believe are necessary to avoid
catastrophic climate change impacts.

The transportation sector is the largest contributor to greenhouse gas emissions in Oregon. It is
therefore a key focus of the state’s greenhouse gas reduction efforts. And the State, recognizing
the role that regional transportation plans (RTPs) play in influencing transportation policies,
projects, and outcomes, has relied on RTPs to help reduce transportation emissions. The State is
responsible for allocating state and federal funds to reduce GHG emissions by making vehicles and
fuels cleaner; it assigns regions targets that are designed to make up the gap between those State-
led reductions and State goals. Beginning in 2012, the State set GHG reduction targets for the
greater Portland region to meet and has continued to update these targets since, most recently in
July 2022. The Portland region’s targets are:
• A 20 percent reduction in per capita greenhouse gas emissions by the year 2035 (the target
for the Climate Smart Strategy adopted in 2014) 48
• A 25 percent reduction by 2040 (the target for the 2018 RTP)
• A 30 percent reduction by 2045 (the target for the 2023 RTP)
• A 35 percent reduction by 2050 (the target for the 2028 RTP)
• Targets for the years 2041-2049 steadily increase from 26 to 34 percent in order to maintain
progress toward the 2050 target. 49

These targets are relative to a 2005 base year. They are based on per capita emissions in order to
control for population growth and focus on the impact of transportation policies, programs and
plans on GHG emissions. Regional targets only apply to certain types of emissions, and therefore
only certain reduction strategies count toward Metro’s targets:

46
Oregon Department of Environmental Quality, Oregon Greenhouse Gas Emissions,
[Link]
47
[Link]
48
The Climate Smart Strategy adopted in 2014 was forecasted to achieve a 29 percent reduction by 2035 if fully
implemented.
49
Oregon Administrative Rule 660-044-0020,
[Link]
[Link]

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• Strategies that reduce emissions from light vehicles, including passenger vehicles (cars,
pickup trucks and SUVs) and commercial trucks with a vehicle weight rating of 10,000 pounds
or less.
• Strategies that impact household travel, whether physically traveled by the members of the
household or by deliveries and miscellaneous commercial travel to their home.4
• Strategies that benefit the climate by reducing vehicle miles traveled. The State estimates
the impact of State-level vehicle- and fuel-based reductions and then sets regional greenhouse
gas targets to fill the remaining gap needed to meet Oregon’s emissions goals. It would be
double-counting if regions also took credit for vehicle- and fuel-based reductions, which
would lead agencies to overestimate progress toward Oregon’s climate goals. The state has
clarified that the targets shown above are equivalent to VMT reduction targets.

The Climate Smart Strategy, 50 adopted in 2014, is the region’s blueprint for reducing emissions. It
identifies a toolkit of high- and medium-impact GHG reduction strategies, summarized in Figure
4.33 below, that the region’s transportation agencies continue to rely on today.
Figure 4.33: Climate Smart greenhouse gas reduction strategies

50
[Link]

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The 2023 RTP GHG and VMT gap

Though the region’s basic toolkit for fighting climate change has remained consistent since 2010,
the State regularly updates the region’s GHG and VMT targets and requires each RTP update to
include a revised climate analysis that demontsrates the region’s progress toward these new
targets that accounts for state clean vehicle and fuel strategies and that updates the level of
implementation of different local and regional strategies to reflect the policies and investments in
the RTP. If this analysis finds that the RTP is not sufficient to meet regional targets, JPACT and
Metro Council can consider changes to the RTP that further reduce VMT and GHG emissions.

Prior to udpating the 2023 RTP project list, Metro estimated the gap between between the
region’s existing emissions under the 2018 RTP and its updated GHG reduction targets. The size
and nature of the gap help to understand and anticipate the extent to which the 2023 may need to
change in order to meet its climate targets, and what the needed changes might look like. Metro
used VisionEval, which is the tool the state uses to set regional climate targets and is designed to
allow users to evaluate and compare multiple different GHG reduction scenarios, to assess two
scenarios:

The target scenario, which represents the Portland region’s GHG/VMT reduction target. The
region’s emissions targets are based on a percentage reduction in 2005-level GHG emissions; the
Target scenario applies these reductions to daily VMT per capita from 2005 to estimate target
levels of daily VMT per capita for different milestone years.

The STS+RTP18 scenario, which represents the GHG/VMT reductions due to adopted State and
local/regional plans. State-level reductions are based on the Statewide Transportation Strategy
(STS), 51 which outlines the strategies that the State will take to reduce transportation-sector GHG
emissions on variables such as the share of zero-emission vehicles, the carbon intensity of fuels,
the balance of cars and trucks in the passenger fleet, vehicle turnover, and the cost of travel
(accounting for the cost of various types of energy as well as state-implemented road pricing).
Metro is required to use State assumptions about the carbon intensity of vehicles and fuels in its
climate analysis, and can choose whether to adjust some pricing assumptions provided by the
state. Local/regional reductions are based on the 2018 RTP, which included significant
investments in transit, active transportation, travel demand and system management, and other
GHG reduction strategies. In 2020, Metro staff made minor adjustments to some of the VisionEval
inputs that represent the 2018 RTP in order to capture progress in implementing these
strategies. 52

51
[Link]
52
2020 adjustments focused on adjusting assumptions regarding participation in traveler information and
incentive programs based on updated evaluation data from Metro’s Regional Travel Options program
demonstrating that participation in these programs is often more limited than anticipated. The 2018 RTP
assumed that 30% of workers and 45% of households receive regular travel options programming; Metro revised
these assumptions downward to 5% and 0.5%, respectively. Other assumptions from the 2018 RTP climate
analysis can be found in Appendix J of the 2018 RTP:

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Table 4.7 and Figure 4.34 show GHG reductions under these two scenarios as well as the RTP23
gap¸ which is the remaining reduction in GHG/VMT that the 2023 RTP update needs to achieve in
order to meet its climate targets, and which is calculated as the difference between the results of
the Target Scenario and those of the STS+RTP18 Scenario. These results are shown in both
absolute daily VMT per capita and in the same percentage reductions relative to the 2005 baseline
that the State uses when establishing regional targets.
Table 4.7: Estimated absolute and percentage reductions in daily VMT per capita by scenario
Estimated Estimated
Target Target (% STS + RTP18 STS + RTP18 RTP23 gap RTP23 gap (%
Year (absolute) reduction) (absolute) (% reduction) (absolute) reduction)
2005 19.4 0% 19.4 0% 0 0%
2035 15.5 -20% 15.0 -22% -0.4 2%
2040 14.5 -25% 14.6 -24% 0.2 -1%
2045 13.5 -30% 14.5 -25% 1.0 -5%
2050 12.5 -35% 14.3 -26% 1.8 -9%

[Link]
Appendix_J_Climate_Smart_Strategy_Monitoring181206.pdf.

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Figure 4.34: Estimated percentage reductions in daily VMT per capita, Target vs. STS+RTP18
Scenario

0%
0%

-5%

-10%

-15%
Daily per capita VMT

-20%
-20%
-24%
-22% -25%
-26%
-25%
-25%

-30%
-30%

-35%
-35%

-40%
2000 2010 2020 2030 2040 2050
Year

These results confirm that the 2018 RTP Climate Strategy was largely on track to meet its GHG
reduction targets. The targets used in the 2018 RTP only extended through 2040, and under the
STS+RTP18 Scenario is very close to Target Scenario levels through the year 2040 However, the
results also highlight a growing GHG reduction gap for the years 2040-50. This is expected since
the State has set targets out to 2050, whereas the GHG strategies adopted in the 2018 RTP only
apply out to 2040. Nonetheless, the way that the results of the two scenarios diverge after 2040,
when targets become more ambitious while local/regional GHG reductions flatten out, suggests
that the region needs to focus on achieving long-term, cumulative emissions reductions to achieve
its targets. This analysis estimates that the region needs to reduce 2050 daily VMT per capita by
1.8 miles below currently forecasted levels to meet its targets. This is equivalent to reducing
VMT/GHG emissions by roughly a third more than what current plans are expected to achieve.
Coordinated implementation of multiple GHG reduction strategies can help to achieve the
necessary reductions, particularly when it is supported by active pricing and/or management of
the transportation system. The 2023 RTP update is the first to include roadway pricing policies

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and projects, which creates a major opportunity to reduce VMT and GHG emissions. Chapter 7
updates the analysis above to evaluate the 2023 RTP update’s progress toward meeting regional
climate targets.

VMT per capita

Vehicle miles traveled (VMT) per capita measures much the average person in the Portland region
drives each day. Many transportation agencies in the region use VMT per capita to measure
progress toward creating vibrant communities and providing multimodal travel options. As
discussed above, the region’s climate targets focus on reducing VMT. Understanding current and
historical VMT per capita can help identify additional opportunities to reduce emssions and close
any gap remaining between emissions under the 2023 RTP update and the region’s climate
targets.

Figure 4.35 below shows historical trends in VMT per capita between 1990 and 2020 for both the
U.S. and the greater Portland region and compares them to the regional
Figure 4.35: Daily VMT per capita for the Greater Portland region (dark blue) and the U.S
(light blue), 1990-2020 (Oregon and Washington Highway Performance Monitoring System
offices) and regional climate targets (green)

Per capita VMT in the Greater Portland region has been significantly lower than the national
average since 1997. There has been a general downward trend, with a few exceptions during

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economic booms, over the past 25 years. However, between 2010 and early 2020 53 there was
little or no decline in VMT per capita. The region’s past successes in transportation and land use
planning appear to have had a lasting impact on people’s travel choices, and even during periods
of growth they may have helped to keep VMT per capita from increasing. But in order to continue
to reduce VMT – especially in an era when high housing costs make it challenging for many people
to live in neighborhoods with good access to travel options – the region will likely need to take
new approaches, such as congestion pricing, or double down on high-impact strategies such as
expanding frequent transit, creating affordable housing in regional centers, and managing or
pricing parking.

These results help to provide some context for understanding the estimated VMT reduction gap
between the 2018 RTP and regional climate targets discussed in the previous section. The
estimated gap of 1.8 miles per person per day is roughly the same amount that regional VMT
declined between 1997 and 2002 or 2007 and 2013, which are two of the periods when VMT
declined the most during the past 30 years. This suggests that closing such a gap is feasible, even
during a period of economic growth such as 1997-2002 (all things being equial, VMT tends to
increase as the economy grows), but it requires a deliberate and coordinated effort.

Figure 4.36 shows how estimated household-based VMT per capita from Metro’s travel model
varies across the region. Though these are estimates, they highlight relative differences in VMT
per capita based on nearby land uses and transportation options.

53
Figure 4.35 also shows a steep decline in both national and regional VMT per capita in 2020. This reflects the
onset of the COVID-19 pandemic, which led many people to limit their travel as stay-at-home orders were
carried out and many schools and workplaces closed. Metro’s Emerging Transportation Trends study (https://
[Link]/public-projects/2023-regional-transportation-plan/research) estimated that the
persistence of teleworking and other pandemic-era behaviors could reduce 2050 VMT per capita by three to
eight percent, all other things being equal.

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Figure 4.36: Home-based VMT per capita by Metro transportation analysis zone, 2020
(Metro regional travel model)

VMT per capita is lower in regional centers, along frequent transit lines, and in many of the
region’s older neighborhoods. This is consistent with research finding that VMT per capita tends
to be lower in compact communities with a mix of destinations and good access to transit and
other options. 54 It demonstrates the impact of sound land use planning and diverse travel options
on VMT per capita.

54
[Link]
development

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Chapter 5
Our Transportation Funding Outlook
2023 Regional Transportation Plan
July 10, 2023 PUBLIC REVIEW DRAFT
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TABLE OF CONTENTS
5.1 Introduction ............................................................................................................. 5-1

5.1.1 Addressing our most urgent needs through investment............................................. 5-4

5.1.2 Chapter organization.................................................................................................... 5-4

5.2 Funding the Transportation System .......................................................................... 5-6

5.2.1 Breaking down revenues by source and government level....................................... 5-12

5.2.2 Implications for equity ............................................................................................... 5-16

5.3 Revenue Forecast and Assumptions ........................................................................ 5-18

5.3.1 Funding programs ...................................................................................................... 5-18

5.3.2 Forecast methods and assumptions .......................................................................... 5-22

5.3.3 Total forecasted revenues ......................................................................................... 5-23

5.4 Transportation System Costs................................................................................... 5-26

5.4.1 Types of transportation costs and investment categories ........................................ 5-26

5.4.2 Adequately maintaining the transportation system.................................................. 5-28

5.5 Demonstration of Financial Constraint .................................................................... 5-32

5.6 Moving Forward Together to Fund The Transportation System ............................... 5-34
FIGURES
Figure 5.1: Historical Timeline of Legislative Milestones for the Transportation System........... 5-3

Figure 5.2: Flow of Transportation Revenues into the Portland Metro Region .......................... 5-7

Figure 5.3 Sources of Transportation Revenues for the 2023 RTP by Government Level ........ 5-13

Figure 5.4: Sources of Federal Transportation Revenue ........................................................... 5-14

Figure 5.5: Sources of State Transportation Revenue Funding the 2023 RTP........................... 5-14

Figure 5.6: Sources of Regional Revenue Funding the 2023 RTP .............................................. 5-15

Figure 5.7: Sources of Local Revenue Funding the 2023 RTP .................................................... 5-16

Figure 5.8: Transportation Cost Burden and Benefits for Different Incomes ........................... 5-17

Figure 5.9: 2023 RTP Total Estimated Investments by Category (YOE$) ................................... 5-27

Figure 5.10 2023 RTP Total Estimated Capital and O&M Investments (YOE$) ......................... 5-28

Figure 5.11 Cost and number of Constrained RTP capital projects by investment area (YOE$) ... 5-31

Figure 5.12 Number and type of Constrained RTP capital projects by Project Cost (YOE$) ..... 5-31

TABLES
Table 5.1: Limitations and Constraints on Revenue Allocation ................................................... 5-8

Table 5.2 RTP Constrained Revenue Forecast Summary for 2023 to 2045 for Capital Projects
(YOE$)......................................................................................................................................... 5-23

Table 5.3 RTP Constrained Revenue Forecast Summary for 2023 to 2045 for Preservation and
Maintenance (YOE$) .................................................................................................................. 5-24

Table 5.4 Estimated costs for Constrained RTP Investment Strategy, 2023-2045 .................... 5-30

Table 5.5 Demonstration of Financial Constraint, 2023-2045 (YOE$)....................................... 5-32

Table 5.6 Road-related Revenue Forecast Compared to Total Costs, 2023 - 2045 (YOE$) ....... 5-33

Table 5.7 Transit-related Revenue Forecast Compared to Total Costs, 2023 - 2045 (YOE$) .... 5-33
5.1 INTRODUCTION
The 2023 Regional Transportation Plan shows that more investment and
funding are needed to build, operate, and maintain the regional
transportation system for all modes of travel.
Since the 1950s, transportation investments have prioritized private vehicles over other
modes, shaping the way we experience spaces and places from suburban downtowns and
business districts, various neighborhoods and even downtown Portland. For the greater
Portland region, RTPs developed by Metro in partnership with local, regional, state, and
federal agencies since the 1980s and 1990s have taken strides
Defining terms
towards remedying this imbalance, meeting the needs of our
Transportation System
roadway infrastructure to address safety and congestion, while
The various transportation
also investing in safe and accessible options for pedestrians, modes and facilities
cyclists, transit riders, and other users of the region’s (aviation, bicycle,
transportation system. Figure 5.1 illustrates some of the key pedestrian, street, transit,
rail etc.) taken altogether
legislative milestones that have led to the state of the system into consideration as one
today. The RTP stands aligned with this vision and trajectory for intertwined system.
funding an equitable and multimodal transportation system.

Yet the geopolitical and socioeconomic context of the region (and indeed, much of the
world) has radically changed since the RTP was last updated in 2018. Even prior to the
COVID-19 pandemic, transportation systems were grappling with the emergence of
dockless electric scooters, while contending with trends towards zero-emissions vehicles,
an aging population, and addressing the climate crisis. The global pandemic in 2020 led to
a drastic change in travel patterns, where telecommuting became widespread and transit
ridership plummeted to historic lows. Steep inflation propagated by international
conflicts further compounded the public health crisis and its lingering effects. Between
the spotlight on essential workers, record-breaking petrol prices, increasing serious
traffic crashes and ongoing inflation, the post-pandemic world has brought equity to the
forefront of transportation discourse, where cost-of-living, and access to transportation
are critical policy issues of the day along with building a safe, reliable, and sustainable
transportation system.

As Chapter 4 has explored, the region still faces many challenges:

• Aging infrastructure • Congestion and reliability

• Rising costs • Fatal and life-changing crashes
• Changing mobility needs • Social inequity and disparities
• Climate crisis and air quality
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Public Review Draft 2023 Regional Transportation Plan | July 10, 2023
• Earthquake vulnerability, security, • Housing and transportation
and emergency management affordability and displacement
• Gaps in transit, biking, and walking • Technological change
connections

Much work has been done since the 2018 RTP to address the growing urban and
transportation needs of the region. In 2020, the Oregon Legislature ratified a bill to end
exclusive single-family zoning in cities with populations greater than 10,000, legalizing
duplexes and triplexes in low density zones to meet housing demand. This was seen as a
significant step towards rectifying a long history of racial discrimination in urban
planning, when land use and zoning were used to redline and discriminate against people
of color in Oregon.

HB 2017 Keep Oregon Moving provided a significant investment in transportation.

However, as the region looks to balance transportation spending over the next two
decades, a robust evaluation of revenue collection and allocation strategies will be critical
to future policy success.

Building a safe, reliable and sustainable transportation system requires steady, long-term
investment. We don’t have the resources to invest at the levels needed to address all of
the challenges facing our region and achieve our shared vision for the transportation
system. For example, the region needs to complete gaps in transit, walking and biking
networks to expand affordable travel options, yet active transportation currently lacks
dedicated funding at all levels of government. The transit system relies heavily on payroll
taxes to fund operations, yet the region’s demand for frequent and reliable transit service
exceeds the capacity of local payroll taxes to support it.

At the same time, innovation in transportation technologies have opened new

opportunities to close the funding gap. An emerging source of transportation revenue
may be in tolling and other pricing strategies. In 2021, Metro completed the Regional
Congestion Pricing Study (RCPS). The RCPS conducted in-depth analysis to test four
pricing strategies including congestion pricing, cordon pricing, parking pricing and
mileage-based fees. The results of this study showed promise for vehicle pricing
strategies, and will be an important factor influencing the region’s funding outlook and
making the most of past investments in the transportation system.

In October 2021, the City of Portland’s Pricing Options for Equitable Mobility (POEM)
Task Force explored pricing options on parking, cordon pricing, and highway tolling. The
Equity and Mobility Advisory Committee (EMAC) advises the Oregon Department of
Transportation (ODOT) and the Oregon Transportation Commission (OTC) on

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development of an easy-to-use, accessible and equitable tolling program in the greater
Portland region.

Each of these efforts have recognized the need to ensure unintended impacts on people
with low-incomes, land use and the transportation system are identified and addressed in
design and implementation.

Figure 5.1: Historical Timeline of Legislative Milestones for the Transportation System

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5.1.1 Addressing our most urgent needs through investment

The transportation funding landscape is changing,

and building a safe, reliable, and sustainable
transportation system requires steady, long-term
investment. However, we don’t have the resources
to invest at the levels needed to address all of the
challenges facing our region and achieve our shared
vision and goals for our transportation system. For
example, we need to complete gaps in our region’s
transit, walking, and biking networks to expand
affordable travel options, yet active transportation
currently lacks a dedicated funding source at all
levels of government. The transit system relies The Joint Policy Advisory Committee
heavily on payroll taxes to fund its operations, yet on Transportation (JPACT) and
the region’s demand for frequent and reliable Metro Council jointly developed
transit service exceeds the capacity of local payroll these goals for the 2023 RTP.
tax to support it.

This chapter presents the funding outlook for investing in the programs and projects
needed to address these most pressing demands on our transportation system over the
next 22 years. The following sections will present those revenues that can be reasonably
expected, the anticipated costs associated with maintaining our transportation system,
and the projects and programs that can reasonably be funded within these financial
constraints. Given our funding limitations, prioritizing where and how to invest is central
to developing a feasible plan for achieving Metro’s six desired outcomes for the region.

5.1.2 Chapter organization

In accordance with federal law, this chapter documents the cooperative process used to
develop the revenue forecast for the 2023 Regional Transportation Plan, and demonstrates
that the RTP is financially constrained as defined by 23 CFR 450.324(f)(11) for the time
period of 2023 to 2045. Projects identified in Appendix A are “reasonably likely to be
funded” for planning purposes, as defined by OAR 660-012-0040 (Transportation Financing
Program). It provides an overview of the long-range financial plan and forecast that includes
system-level estimates of both revenue sources and costs. Details of the long-range forecasts,
including key forecast assumptions, can be found in Appendix H.

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This chapter is organized into the following sections:

5.1. Introduction: This section describes the current outlook for transportation
funding in the region as a result of recent events and summarizes the rationale for
further investment.

5.2. Funding the Transportation System: This section offers an overview of how
transportation in the region is funded, from revenue collection to distribution to
various funding programs and to expenditure on programs and projects. The
equity implications of our existing funding structures will also be highlighted.

5.3. Revenue Forecast and Assumptions: This section summarizes forecasted

revenue to support implementation of the RTP, including revenues anticipated to
be available to adequately operate and maintain the transportation system as well
revenue anticipated to be available to fund priority transportation programs and
projects. It also describes the forecast methods and the process by which
forecasted revenues were identified by Metro, the Oregon Department of
Transportation (ODOT), Tri-County Metropolitan Transportation District of
Oregon (TriMet), the South Metro Area Regional Transit (SMART), the Port of
Portland, Confederated Tribes of the Grand Ronde and the 24 cities and three
counties located within the metropolitan planning area boundary.

5.4. Transportation System Costs: This section summarizes system-level

transportation costs of priority programs and projects included in the RTP.

5.5. Demonstration of Financial Constraint: This section compares the forecasted

revenue expected to be available for transportation investment in the region (5.3)
and compares it to the cost of adequately maintaining and operating the
transportation system (5.4) and to the cost of new transportation projects
included in the plan (see financially constrained list of projects contained in
Appendix A). This section will demonstrate that these costs do not exceed
forecasted revenues.

5.6. Moving Forward Together to Fund the Transportation System: This section
calls attention to our future transportation needs and issues a call to action for
more funding to secure a future with equitable and accessible transportation for all.

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5.2 FUNDING THE TRANSPORTATION SYSTEM
Transportation revenues are collected from a variety of sources, which are
distributed through complex processes before being available to
transportation agencies in the greater Portland region.
At its core, the financial structure behind our transportation system follows a four-part
process:
1. Collection of revenues
2. Identification of and distribution of revenues to funding programs
3. Funding programs selection of projects to receive funds
4. Spending of revenues

The collection of transportation revenues occurs across multiple levels of government

and from a wide range of sources. Revenues then flow through a variety of programs,
redistributions, and formulae before being invested in the greater Portland region’s local
and regional transportation networks. Figure 5.2 illustrates the transportation funding
process for the RTP, as revenues flow from collection to direction for expenditure.

Metro’s approach to the 2023 RTP and overall Defining terms

transportation funding in the region is one centered by
Safe Systems Approach
equity and safety; they form two of five core tenets in A data-driven, strategic approach to
Metro’s goals for the RTP. For one, Metro is committed roadway safety that recognizes the
underlying infrastructural and
to a Safe Systems Approach to achieve Vision Zero by
educational causes of traffic collisions.
2035 and will leverage funding sources in this RTP to It is based on the principle that human
advance the elimination of serious and fatal injuries error is inevitable, but fatalities and
serious injuries should not be.
from traffic crashes.

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Figure 5.2: Flow of Transportation Revenues into the Portland Metro Region

Sources: FTA and FHWA Transportation Revenue Sources 2022, ODOT Revenue Forecast for 2023 RTP, ODOT Legislatively Adopted Budget 2022, locally
reported revenue sources, revenue sources reported by Confederated Tribes of the Grand Ronde, transit providers and other transportation agencies, and
Draft 2023 RTP Constrained Project List (7/10/23)

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The left side of Figure 5.2 shows the different types of funding sources that comprise
local, state, and federal revenues for transportation. For example, the gray box denoting
“Federal Sources $15 billion” describes the total revenues that are collected at the federal
level (such as federal income taxes and gas taxes) for federal fiscal year 2022 that were
available to the region. These funds are not typically directly allocated by the federal
government, but instead are disbursed to state and local governments who then prioritize
the projects for funding in state and local plans and the Regional Transportation Plan.

The gray arrows illustrate transfer of funds between federal, state, and local
levels, also known as intergovernmental transfers, or suballocations.

Shown with blue arrows, transfers are combined with local and regional own-
source revenues to fund the programmed projects in the 2023 RTP.

Transfers from the federal and state levels are often packaged as funding allocation
programs, with competitive grant application processes that local jurisdictions apply
through in order to receive this funding.

Agencies that allocate federal, state and regional funding to transportation projects and
programs (ODOT, TriMet, SMART, and Metro) utilize these plans when allocating federal
and state funding through their various funding allocation programs. Section 5.3 of this
Chapter will expand upon the various funding allocation programs and how they support
the RTP.
Some revenues must be spent in certain ways, as described in Table 5.1.

Table 5.1: Limitations and Constraints on Revenue Allocation

Source Category Allocation and Constraints Description

Federal
Fuels tax
Heavy trucks and Roadways,
trailers sales tax transit, bike,
Heavy vehicles and pedestrian
annual use tax

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 Source Category Allocation and Constraints Description
Individual income Federal revenue sources fund the Highway Trust
taxes, corporate Fund (HTF). The HTF is made up of the Mass
income taxes Transit Account and the Highway Account.
(General Fund The Mass Transit Account receives 15.5% of the
transfer) revenue generated by the gasoline tax and 11.7%
of the revenue generated by the tax on diesel fuel.
The remainder of the fuel tax is dedicated to the
Highway Account. The Mass Transit Account funds
transit projects while the Highway Account funds
roadway, bike, and pedestrian projects. Federal
funding from the HTF flows through state DOTs
and to local agencies and is allocated using
formula funds. 1
State
Motor Fuels Tax Roadways, These revenue sources fund the State Highway
Weight Mile Tax bike, and Fund. The State Highway Fund is restricted to
pedestrian funding construction, operation, and maintenance
Driver and Vehicle within the of roads, including bike and pedestrian projects in
Fees right-of-way the right-of-way. 2 In 1971, ORS 366.514 dedicated
Transportation at least 1% of highway funds to bicycle and
License and Fees pedestrian projects.3
Cigarette Tax Transit A portion of the Cigarette tax is dedicated to
transit services for seniors and disabled people. 4
Bike Tax Bike Revenue from the bicycle excise tax goes into
Multimodal Statewide Investments Management
Fund. It used to fund a bike and pedestrian
program within Connect Oregon. 5
Privilege Tax Outside of Funds are allocated to the Connect Oregon Fund
Lottery Revenues right-of-way – and fund rebates for electric vehicles. The Connect
aviation, rail, Oregon Fund is restricted to projects outside the
and marine highway right-of-way. Historically these projects
included active transportation but most recently
funds are dedicated to aviation, rail, and marine
projects. Any project that is eligible for funding

1
[Link] Department of Transportation Federal Highway
Administration. (2017). “Fixing America’s Surface Transportation Act or “FAST Act.””
2
Oregon Department of Transportation. (2022). “Transportation Funding in Oregon.”
3
Interpretation of ORS 366.514
4
Oregon Department of Transportation. (2022). “Transportation Funding in Oregon.”
5
Oregon Department of Transportation. (2022). “Connect Oregon.”

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 Source Category Allocation and Constraints Description
from the State Highway Fund is not eligible for
funding from Connect Oregon. 6
Payroll Transit Tax Transit except The tax is deposited into the Statewide
light rail Transportation Improvement Fund and is limited
to investments and improvements in public
transportation services, except for those involving
light rail. 7
Income Tax Variable As the state legislatively directs. In the past it has
(General Fund been used for capital projects such as light rail.
Transfer)
Local
Mass-Transit Transit The tax funds mass transportation in the TriMet
(TriMet) Tax district.8
Transit Fares Transit Fares fund the transit system. They make up 7% of
(Passenger TriMet’s FY2023 Budget.9
Revenues)
Gas Tax Roadways, Under state law, motor vehicle revenue is
Vehicle bike, and restricted to funding construction, operation, and
Registration Fee pedestrian maintenance of roads, including bike and
within the pedestrian projects in the right-of-way.
right-of-way
Transportation Capital Fees are dedicated to recoup the cost of additional
System projects that infrastructure projects required to serve new
Development increase or developments. 10 In Oregon, state law requires that
Charges improve revenue only be spent on capital projects. 11 Local
capacity municipalities may have additional requirements
on use of revenue, such as specifically serving the
impacted area and related parameters.
Street Utility Fees Street repair Funds are spent locally on street maintenance.
and
maintenance
Utility Fees based Street repair Revenue funds projects outlined in Milwaukie’s
on estimated and Street Surface Maintenance Program, Bicycle and
number of trips maintenance, Pedestrian Accessibility Program, and the federal

6
Oregon Department of Transportation. (2022). “Connect Oregon.”
7
Oregon Department of Revenue. (2022). “Statewide transit tax.”
8
TriMet. (2021). “Form OR-TM Instructions.”
9
TriMet. (2022). “Adopted 2022-2023 Budget
10
Oregon Metro. (2007). “System Development Charges.”
11
Oregon Legislature. (2021). “Chapter 223 – Local Improvements and Works Generally.”

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 Source Category Allocation and Constraints Description
Bike and ADA Transition Plan. Funding transit, ADA
Pedestrian improvements, and active transportation has a
Accessibility, positive equity component.
ADA Transition
Franchise Fees Flexible Franchise fees feed directly into the General Fund
to support a portion of a city’s transportation
budget.
PGE Privilege Tax Street repair Funds are spent locally on street maintenance.
and
maintenance
Parking Flexible, Parking fee revenue is general discretionary
Fees/Fines discretionary transportation revenue at PBOT. 12
PBOT revenue
Urban Renewal Flexible but Taxes are paid by all homeowners in a jurisdiction
must be spent and revenue is spent on local transportation
within TIF projects within specified districts. Tax Increment
districts Financing (TIF) districts can be used to fund
improvements in historically underserved
communities, including transportation projects. 13
14

Property Taxes Flexible, must For example, taxes are paid by local homeowners
be on major in Washington County and revenue is spent on
road. local transportation projects through the Major
Streets Transportation Improvement Program
(MSTIP). MSTIP funding improves the
transportation system for bicyclists, pedestrians,
drivers, and transit passengers. Projects must
improve safety, improve traffic flow or congestion,
be on a major road, address needs for all
travelers.15
TNC Fee Flexible, funds This fee has been used to fund programs that help
programs remove barriers to mobility. Program examples
include Wheelchair-Accessible Vehicle program,

12
Portland Bureau of Transportation. (2019). “PBOT Financial Overview.”
13
Prosper Portland. (2021). “Your property tax bill and urban renewal.”
14
Clackamas County Development Agency. (2011). “Urban Renewal in Clackamas County.”
15
Washington County, Oregon. “Major Streets Transportation Improvement Program (MSTIP).”

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 Source Category Allocation and Constraints Description
Safe Ride Home Program, safety inspections, and
Transportation Wallet Initiative.16 17
Local Flexible, must A Local Improvement District (LID) is a mechanism
Improvement be spent in the for neighboring property owners to share the cost
District LID of improvements to infrastructure, where
property owners agree to tax themselves (typically
at least 51% of the property owners must be in
favor). For transportation, it is often used to pave
unimproved streets or build sidewalks.
Heavy Truck Fee Street repair, In Portland, the fee is allocated for 56% Street
maintenance, Repair/Maintenance and 44% Traffic Safety.
and safety Projects for both safety and maintenance should
focus on streets important to freight movement.18

Section 5.4 of this Chapter will further describe transportation system costs and the role
that funding programs play in supporting our transportation system.

Finally, the right side of the diagram shows the categories of Defining terms
projects that are proposed for funding in the 2023 RTP. The Financially Constrained
approximate costs associated with each spending category are When a transportation
plan includes sufficient
elaborated upon in Section 5.5 of this Chapter. The total information to show that
expenditure anticipated for all the categories listed on the right proposed investments can
of this diagram are reasonably expected to be fully funded by the be implemented using
reasonably available
revenues going into the 2023 RTP; the demonstration of revenue sources.
financially constrained expenditures is captured in Section 5.6.

5.2.1 Breaking down revenues by source and government level

The following figures summarize revenue sources by the government level that originally
collects the revenue, before any suballocations are made to other entities. Figure 5.3
breaks down the total pool of funding that will go into the 2023 RTP, by the level of
government responsible for collecting this revenue (before any regional suballocations
are made).

16
City of Portland, Oregon. “Private For-Hire Transportation & Regulations.”
17
Schafer, Hannah. (2019). “PBOT News Release: PBOT, Portland Police Bureau encourage Portlanders to take a
Safe Ride Home on St. Patrick’s Day.” Portland Bureau of Transportation.
18
Portland Bureau of Transportation. “Heavy Vehicle Use Tax (HVUT) Background and Projects.”

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Figure 5.3 Sources of Transportation Revenues for the 2023 RTP by Government Level

Federal
Local 16%
18%

State
15%

Regional
51%

As Figure 5.3 shows, 16 percent of the revenues in the RTP financial plan are collected at
the federal level. These funds are primarily comprised of:
• Funds disbursed by the Federal Highway Administration (FHWA) Highway Trust Fund
(HTF) for roadway capital and maintenance efforts,
• Funds disbursed by the Federal Transit Administration (FTA) for transit capital and
maintenance efforts,
• Funds disbursed through the Oregon Department of Transportation (ODOT) for
capital projects and improvements; and,
• Funds disbursed through ODOT for roadway maintenance and operations.

The Federal Highway Trust Fund (HTF) is funded primarily by the federal gas tax, a key
revenue source that has seen decreasing returns in recent years. Between changing travel
behaviors, inflation, and the rising demand for infrastructure, the HTF has increasingly
relied on general revenue transfers to cover its deficit. A portion of this revenue goes to
states specifically to maintain federal roadways—Interstate Highways and U.S.
Highways—and the remainder is further distributed to various states and localities for
their local transportation needs, through formula and grant funding programs. Figure 5.4
below provides a breakdown of the revenue sources that make up the Highway Trust
Fund.

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Figure 5.4: Sources of Federal Transportation Revenue

Other taxes, fees investment Heavy vehicles annual

income and other receipts use tax
Heavy trucks and
1% 2%
trailers sales tax
9%

Gas & fuels tax Diesel and kerosene tax

45% 18%

General fund (individual and

corporate income taxes)
24%

State funds comprise 15 percent of the Regional Transportation Plan’s financial plan.
These revenues fund transit, roadway capital and maintenance projects. Figure 5.5 shows
the breakdown of revenue sources collected at the state level that contribute to ODOT’s
budget.

Figure 5.5: Sources of State Transportation Revenue Funding the 2023 RTP

Other Revenues
6% General Fund
Tribal Transportation Revenues: <0.01% Appropriations
2%
I-205 Toll Revenues
22% Motor Fuel Taxes
17%

Interstate Bridge Replacement

(IBR) Toll Revenues
22%
Driver and Vehicle
Regional Mobility Pricing Project Taxes & Fees
(RMPP) Toll Revenues 25%
6%

Approximately 49 percent of state transportation revenue is generated from toll

revenues, most notably I-205 toll revenues (22 percent), Interstate Bridge Replacement
(IBR) toll revenues (22 percent), and Regional Mobility Pricing Project (RMPP) toll
revenues (6 percent). Non-tolling revenue sources are part of ODOT Region 1 revenues

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that will fund the 2023 RTP. Tribal revenues are included in the composition of state
transportation revenue, representing just under 0.1 percent of transportation revenues.

Regional transit sources represent about half of transportation revenues in the Regional
Transportation Plan, more than any other source. Figure 5.6 shows the composition of
regional transit revenues, which are generated by TriMet and SMART. Most of these
revenues (77 percent) come from TriMet via payroll taxes, while 11 percent is generated
by operating revenues from TriMet transit service and 6 percent is generated from
bonded grants.

Figure 5.6: Sources of Regional Revenue Funding the 2023 RTP

TriMet - Misc Other Revenue

2%
TriMet - Governance Funds
3%
SMART - Payroll Tax: 0.82%
TriMet - Bonded Grants
6% Port of Portland Funds: 0.39%
SMART - Transit Revenue: 0.01%

TriMet - Transit Revenue

12%

TriMet - Payroll Tax

76%

Figure 5.7 illustrates local own-source revenues, which account Defining terms
for 18 percent of transportation revenues in the RTP. The
System Development /
majority of local transportation revenue sources are property Impact Fees and Charges
taxes and development and system impact fees, which combined One-time fees levied on
new property and
account for 66 percent of local revenues. Other sources of
developments to cover the
revenue include parking fees and fines, local gas taxes, vehicle cost of new public
registration fees, bonds, and other fees and dedicated sources as infrastructure needed to
well as general fund contributions. Each local jurisdiction service it.

generates different proportions of revenue from different

sources.

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Figure 5.7: Sources of Local Revenue Funding the 2023 RTP

Misc Taxes, Charges, and Fees Dedicated Parks Funding

2% 1%

Dedicated Taxes and Fees

4% Other Taxes and Fees: 0.06%

Misc Revenues and Fees County Fuel Tax: 0.01%

6%
County VRF
7%
Development and System
Impact Charges
33%
General Funds
14%

Property Taxes
33%

5.2.2 Implications for equity

The diverse range of revenue sources collected highlights Defining terms

how transportation funding touches all of us, how everyone
Transportation Equity
contributes in some way. However, not all revenue sources A commitment to actions that
are equal, and certain populations pay greater shares of the will eliminate barriers and
disparities relating to
cost than others. Moreover, our current transportation
transportation. It is the
system does not always put people first, and future provision of thoughtful, inclusive
investments and projects must not further compromise the support to reverse the impacts
of historical planning decisions.
well-being of the region’s residents whether as pedestrians,
cyclists, drivers, or shared mobility users.

As such, Metro commissioned a study into the equity of our existing transportation
system and funding structures. Published in 2022, the Equitable Transportation Funding
Report presents a literature review of 30 existing revenue sources and illuminates how
low-income households and people of color often carry a disproportionate burden in
funding our transportation system. 19

19
Oregon Metro, Equitable Transportation Funding Research Report, 2022.

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Figure 5.8: Transportation Cost Burden and Benefits for Different Incomes

For example, with the exception of regional transportation revenues, the largest funding
source at every level of government pertains to motor vehicle-related levies such as gas
taxes and vehicle registration fees. However, fuel-efficient vehicles, electric vehicles, and
telecommuting are increasingly popular alternatives for people with the financial means
to access them, depreciating the efficacy of motor fuel revenues as a long-term
transportation revenue source. Low-income households are categorically less likely to
have access to any of the aforementioned alternatives. Motor fuel taxes are a form of
excise tax; a sales tax targeted on specific products determined by quantity purchased
rather than a consumer's ability to pay. In the case of transportation, which is relatively
inelastic, access to mobility options is often needed regardless of one's income (e.g., for
school, work, errands etc.). This means that low-income individuals and households
inevitably spend a bigger proportion of their income on transportation. As long as our
transportation system relies so heavily on motor fuel taxes, lower-income populations
will increasingly bear the burden of financing the bulk of our regional transportation
system.

The example of motor fuel taxes is only one of many revenue sources that demand
consideration as we envision a more equitable, accessible, safe, and clean transportation
future. Careful thought into how we collect transportation revenues, and how we
ultimately spend them, has the potential to level the playing field for all members of our
communities.

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5.3 REVENUE FORECAST AND ASSUMPTIONS
Understanding transportation funding starts with knowing where and how
revenues are collected, in order to make equitable spending decisions.
The RTP revenue forecast reflects extensive consultation and coordination with local
governments, the Port of Portland, the Oregon Department of Transportation (ODOT),
TriMet, and SMART. Metro convened two workshops with local agency staff and provided
review and support to County Coordinating Committee staff and the City of Portland to
describe and forecast local agency revenues through the planning period. There were also
individual meetings with ODOT, TriMet, SMART and Port of Portland staff to support
forecasts of revenues generated by those agencies and federal and state funds passed
through to them. The forecast includes revenues raised at the federal, state, regional, and
local levels for transportation projects and programs to be included or accounted for in
the 2023 RTP.

Federal and state revenues were identified through a statewide funding working group
convened by ODOT that included transit providers and MPOs. In addition, Metro worked
with ODOT to estimate a range of potential tolling revenues that are reasonably expected
to be available to fund ODOT capital projects (e.g., I-5 Interstate Bridge Replacement
(IBR) Program, I-205/Abernethy Bridge and Phase 2 Widening and Toll Project, and the
Regional Mobility Pricing Project on I-5 and I-205).

Forecasted local revenues are coordinated with and updated from local Transportation
System Plans (TSPs) and capital improvement programs in consultation with local
agencies. Some of these revenues are already committed to individual projects, in which
case those projects are included in the 2023 RTP financially constrained project list.

5.3.1 Funding programs

The transportation revenue sources presented in the previous section (Section 5.2) go
through an elaborate system of intergovernmental redistributions and suballocations
before being directed for spending. This is particularly true for revenues collected at the
federal and state levels, and the process is typically conducted through funding programs
such as grants, funds, and funding formulae. Each level of government has the authority to
budget, assign, and distribute revenues they collect to various funding programs.

There are many funding programs available to the greater Portland region; many
programs are funded by specifically identified revenue sources. For example, the Oregon
Department of Transportation (ODOT) collects revenues from the Statewide Transit
Payroll Tax specifically to fund the Statewide Transportation Improvement Fund (STIF)

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program, which municipal and regional agencies can then submit applications for grants
from.

Federal funding programs included in the RTP include the following:

Fund Name Description
Congestion Mitigation Allocated to ODOT, which portions out an annual apportionment to Metro.
Air Quality (CMAQ) These funds are used for the Metropolitan Transportation Improvement
Improvement Funds Program (MTIP).
CMAQ funds must be used on programs that reduce congestion and
improve air quality to meet national standards for ozone, carbon
monoxide, or particulate matter.
Forecasts for these funds are included as part of the Statewide forecast.
Surface Transportation STBGP funds may be used to maintain or improve the performance of any
Block Grant Program Federal-aid highway, bridge and tunnel projects on any public road,
(STBGP) pedestrian and bicycle infrastructure, and transit capital projects, including
(includes intercity bus terminals. The STBGP supplants programs from prior
Transportation authorizations, including FAST Act Transportation Alternatives and the
Alternatives (TA) set- Surface Transportation Program of MAP-21.
aside) ODOT administers this funding to Portland Metro, and to the rural portions
of Clackamas, Multnomah, and Washington Counties.
Highway Safety The HSIP program is intended to achieve a significant reduction in traffic
Improvement Program fatalities and serious injuries on all public roads, including non-State-
(HSIP) owned public roads and roads on tribal lands. The HSIP requires a data-
driven, strategic approach to improving highway safety on all public roads
that focuses on performance.
National Highway The National Highway Freight Program promotes projects that improve the
Freight Program efficiency of freight on the national highway freight network. These funds
can also be used to fund supporting infrastructure.
National Highway The NHPP supports the construction of new facilities and improvement of
Performance Program existing facilities on the National Highway system to support projects that
(NHPP) meet the goals of Oregon’s highway performance plan. NHPP funds, as of
the IIJA, can also be used to provide resiliency against sea-level rise,
extreme climate events, and natural disasters.
Metropolitan Planning These funds support regional planning efforts in metropolitan areas. As the
Program area MPO, Metro is the primary user of these funds, and uses it mostly for
the regional unified work plan.
Carbon Reduction Carbon reduction funds are used for projects that reduce transportation
CO2 emissions.
State Planning and Every State DOT must develop a State Transportation Research program.
Research Research may identify actions to improve the regional roadway system,
benefitting travelers in the Metro region.
Bridge Program Regionally, several bridges qualify for the bridge investment program. The
Interstate Bridge Replacement Program has been awarded funds for the
project, and Multnomah County hopes to win funds for the Burnside Bridge
replacement.

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 Fund Name Description
National Electric NEVI funds allow states to strategically deploy electric vehicle charging
Vehicle Infrastructure stations, per the IIJA. In the Metro region, I-5 is already compliant with
(NEVI) national alternative fuel network provisions. I-205 is in the immediate
statewide infrastructure plan.
Promoting Resilient The IIJA sees the creation of a new program to increase the resilience of
Operations for the Nation’s infrastructure. PROTECT funds can be used to fund planning
Transformative, activities, resilience improvements, community resilience, evacuation
Efficient, and Cost- route improvements, and at-risk coastal infrastructure.
Saving Transportation
(PROTECT)
Miscellaneous Grants Based on historical rates of winning grants from prior authorizations and
assuming that programming continues under the current Infrastructure,
Investment, and Jobs Act (IIJA), this RTP assumes some level of money
under miscellaneous grant programs. Examples include competitive funds
under the Congestion Relief, Resilient Operations (PROTECT program),
electric infrastructure, or Reconnecting Communities grant and
discretionary funds.
Reduction of Truck In the Metro region, the public operator of seaport and airport
Emissions at Port infrastructure, as well as the public manager of port-supporting rail
Facilities infrastructure, is the Port of Portland. While funds for the National
Highway Freight Program can be used on any Federal-aid highway, this
funding is specific to Port facilities.
Railway-Highway This program funds improvements to safety at public railway-highway
Crossings Program grade crossings, including protective devices and grade separation. These
are usually coordinated between Class I railroads, the Port of Portland,
Metro, and the affected local agency.
Maritime The PIDP is discretionary funding that can be used to improve port and
Administration related infrastructure to ensure that the nation’s ports can meet the
(MARAD) Port nation’s freight transportation needs and can meet anticipated growth in
Infrastructure freight volumes.
Development Program
(PIDP)
FTA Section 5303 Similar to the FHWA’s Metropolitan and non-Metropolitan planning grants,
Metropolitan and non- these funds are allocated to ODOT, which portions out the funds
Metropolitan statewide. Metro uses these funds for transit and regional planning
Statewide Planning purposes.
Formula Funds
FTA Section 5307 Provides funding to public transit systems in Urbanized Areas (UZA) for
Urbanized Area public transportation capital, planning, job access and reverse commute
Formula Grant projects, as well as operating expenses in certain circumstances. As the
transit agencies in the Metro region, SMART and TriMet are the users of
these funds.
FTA Section 5337 State The State of Good Repair Grants Program (49 U.S.C. 5337) provides capital
of Good Repair Grants assistance for maintenance, replacement, and rehabilitation projects of
high-intensity fixed guideway and bus systems to help transit agencies

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 Fund Name Description
maintain assets in a state of good repair. Additionally, SGR grants are
eligible for developing and implementing Transit Asset Management plans.
FTA Section 5339 Provides funding to states and transit agencies through a statutory formula
Grants for Buses and to replace, rehabilitate and purchase buses and related equipment and to
Bus Facilities Formula construct bus-related facilities. In addition to the formula allocation, this
Program program includes two discretionary components: The Bus and Bus Facilities
Discretionary Program and the Low or No Emissions Bus Discretionary
Program.
FTA Section 5310 This program (49 U.S.C. 5310) provides formula funding to states for the
Enhanced Mobility of purpose of assisting private nonprofit groups in meeting the transportation
Seniors and Individuals needs of older adults and people with disabilities when the transportation
with Disabilities service provided is unavailable, insufficient, or inappropriate to meeting
these needs
Other funding Certain projects are funded through discretionary funds, such as the FTA
5309 New Starts/Small Starts grants, or STBG Flex funds allowed under
Section 5310. These funds are forecast based on historical levels.

State funding allocation programs include the following:

Fund Name Description
Fix-It ODOT allocates funding to various asset management activities for its
facilities through its Fix-It allocation program. The Fix-It program includes
several sub-categories such as the Bridge program, Pavement
Preservation, and Operations. Revenues for the Fix-It programs include
both federal and state sources.
Enhance Funding allocations to projects which expand or enhance the state
owned and operated transportation system
Safety Funding to projects that are focused on reducing fatal and serious injury
crashes on Oregon’s roads.
Public and Active Funding to be allocated to bicycle, pedestrian, public transportation and
Transportation transportation options projects and programs.
Other Functions Funding to be allocated to workforce development, planning and data
collection and administrative programs using federal resources
Statewide The statewide transportation improvement fund (and recently
Transportation incorporated Special Transportation Fund) provide state funding to local
Improvement Fund area transit service provides to support operations and small capital
projects.

Regional funding allocation programs include:

Fund Name Description
Regional Flexible Fund The Regional Flexible Fund Allocation (RFFA) process is the allocation of
Allocation federal urban-STBG (including TA set-aside) and CMAQ funding by Metro.
Carbon Reduction Metro allocates the urban apportioned Carbon Reduction Program
Program funding for the Metropolitan area.
Regional Trails Bond Metro Parks allocates funding for regionally significant trails projects in
funding the region in coordination with the RFFA funding process.

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Local agencies, including transit agencies, that raise their own revenues and receive pass
through revenues from state or federal agencies allocate those revenues to projects and
activities through their capital improvement program and annual budget processes.

5.3.2 Forecast methods and assumptions

The Federal Highway Administration (FHWA) requires that the RTP use “reasonably
available” funds to forecast that regional transportation improvements are prudent and
reasonably financed. Reasonably available funds are forecast to the best knowledge of
staff and may not be indicative of actual funding levels in a future year. Values reflect
current trends and are used to forecast “likely” project timelines for the region, not, for
example, commitment that a project will be built in 20 years’ time. Reasonably available
fund estimates are therefore not like budget estimates and are likely to reflect a higher
value than local budget documents.

Federal regulations direct the revenue forecast to be developed cooperatively by the MPO
with agencies involved in the regional planning process. This cooperative process began
at the state level, led by the Oregon Department of Transportation (ODOT). ODOT led
development of the statewide long-range revenue forecast with the participation of the
Oregon MPOs. This process documented agreed upon forecast methodologies and the
federal and state transportation revenues to be expected for the state to inform the long-
range planning efforts led by the MPOs. The forecast was the starting point for defining
federal and state revenues expected within the region over the planning period of 2023
through 2045.

All cities, counties, local parks districts, and Port agencies that generate and expend
transportation revenues were asked to update their 2018 RTP local revenue worksheets.
Growth rates were generally left to the local agency to determine; cities usually opted to
extrapolate from historic rates of growth. Cities were allowed to change the growth rate if
future conditions were expected to change, input negative growth rates, or to terminate a
revenue source if for some reason it was to sunset.

Every effort has been made to separate fund sources out by type. However, some
jurisdictions have more complex fund sources and agreements, and complete breakdowns
by source were not compiled in time for this document. These tables were used to
compile countywide summaries from each jurisdiction.

Transit agencies provided similar workbooks as the local and county agencies. However,
transit agencies receive their federal dollars primarily from the FTA instead of the FHWA.

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5.3.3 Total forecasted revenues

The forecasted transportation revenues are determined from the collaborative efforts of
cities, counties, transit providers, states, and the federal government. A constrained
revenue forecast for capital projects that meets federal requirements for demonstrating
reasonable availability of expected future funding is summarized in Table 5.2. Table 5.3
summarizes the revenue forecast for preservation and maintenance activities.

Table 5.2 RTP Constrained Revenue Forecast Summary for 2023 to 2045 for Capital Projects
(YOE$)
RTP Constrained Revenue Forecast Summary for 2023 to 2045 (YOE$) – Capital Projects

Millions
Fund category
of YOE $
Clackamas County and Cities Local revenues and State pass $1,190.70
through
Federal, state and regional $340.65
discretionary funding
Total $1,531.35
Multnomah County and Cities, Local revenues and state pass $2,112.02
including city of Portland through
Federal, state and regional $1,672.29
discretionary funding
Total $3,784.31
Washington County and Cities Local revenues and State pass $4,749.74
through
Federal, state and regional $660.25
discretionary funding
Total $5,409.99
ODOT Federal $4,302.50
State $1,777.30
Tolls $1,200.00
Total $7,279.80
I-5 Interstate Bridge Federal $2,400.00
Replacement Program 20 State $2,000.00
Tolls $1,600.00
Total $6,000.00

20
The I-5 IBR Replacement Program project is in an early stage of design. These estimates may be adjusted
higher or lower depending on the outcome of NEPA and updated design.

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 RTP Constrained Revenue Forecast Summary for 2023 to 2045 (YOE$) – Capital Projects

Millions
Fund category
of YOE $
Confederated Tribes of the Grand Federal and tribal $6.76
Ronde (CTGR)
SMART Federal, state discretionary funding $51.45
TriMet Federal, state $4,500.84
Port of Portland Federal, State and local $127.86
Metro Federal $386.42
Total revenue sources available for capital $29,078.78
Federal, state, and local dedicated funding available pre-2024 not $774.33
accounted for above (as reported by transportation agencies and CTGR)
These are preliminary estimates that will be finalized as part of the RTP adoption.

Forecasted revenues shown in Table 5.2 include $1,966,557,000 of dedicated funding, of

which $774,330,000 is available before 2024. Dedicated funding is local, regional, state, or
federal revenues that are dedicated to the project as result of local, regional, state, and/or
federal legislative action. Projects or project phases that have dedicated funding must be
included in the financially constrained system, and the dedicated funds are not available
for other projects.

Table 5.3 RTP Constrained Revenue Forecast Summary for 2023 to 2045 for Preservation
and Maintenance (YOE$)
RTP Constrained Revenue Forecast Summary for 2023 to 2045 (YOE$) for Preservation and
Maintenance

Millions
Fund category
of YOE $
Clackamas County and Cities Local revenues and State pass $1,952.49
through
Multnomah County and Cities, Local revenues and state pass $8,516.89
including city of Portland through
Washington County and Cities Local revenues and State pass $2,658.89
through
ODOT Federal 21 $764.10
Tolls $807.10
Total $1,571.20
SMART State $48.58

21
For simplicity, assumed federal funds used for these activities. Actual spending is likely to be a blend of federal
and state revenue sources.

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 RTP Constrained Revenue Forecast Summary for 2023 to 2045 (YOE$) for Preservation and
Maintenance

Millions
Fund category
of YOE $
Local $205.34
Total $253.92
TriMet Federal $3,369.28
State $1,476.79
Local $20,971.68
Total $25,817.75
Total revenue sources for preservation and maintenance $40,771.14
These are preliminary estimates that will be finalized as part of the RTP adoption.
More detailed information about the forecasting assumptions, sources of funding
accounted for and process used to develop the financially constrained revenue forecast
can be found in Appendix H.

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5.4 TRANSPORTATION SYSTEM COSTS
Our transportation needs are wide-ranging and extensive; here are the
various investment categories needed to maintain and improve our system.
This section summarizes the costs of the RTP Constrained list of projects and programs;
this is the list of priority investments that the region can reasonably assume it will
complete based on funding assumptions described in this chapter. The revenue forecast
in the previous section provides an estimate of how much funding can be reasonably
expected to be available during the life of this plan (2023-2045).

5.4.1 Types of transportation costs and investment categories

People living, working, and travelling in the greater Portland region get around in a
diverse range of ways; in-kind, the region’s transportation system is varied to meet these
different needs. While roadways are a predominant type of infrastructure throughout the
region, the RTP recognizes the importance of multimodal infrastructure and includes
investments in all parts of the system accordingly.

Road and bridge investments include adequately maintaining the integrity and usability
of the region’s many roadways and bridges, while improving their safety and resilience to
earthquakes and other natural hazards. Roadway and bridge improvements that include
Complete Streets designs and other streetscape retrofits can benefit all modes of travel.

Throughways include the region’s interstate freeways and major state highways.
Throughway projects in the RTP add or reconfigure travel lanes, and improve nearby
surface streets, access ramps, active transportation connections and transit facilities.

The I-5 Interstate Bridge Replacement project (IBR) is the Defining terms
only megaproject in the region. The project will replace the
Megaproject
existing 105-year old bridge connecting Oregon and Washington Multimodal projects that
State with a multimodal, seismically resilient river crossing that have a total cost of over
$2 billion.
includes high capacity transit, auxiliary lanes, protected
bikeways and tolling.

Transit capital and operations investments include maintaining and operating existing
levels of service, as well as the planning, design, and construction of new transit
infrastructure and services. This includes increased bus service coverage, speed and
frequency, new MAX, streetcar, high capacity transit extensions and Better Bus
investments that improve speed and reliability. Other examples include providing bus
shelters and benches, passenger boarding areas, and lighting at bus stops and transit
stations.

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Walking and bicycling investments fill important gaps in sidewalks, bikeways, and trails,
improve crossings of major streets, install lighting and curb ramps and other design
features to make walking, rolling, and bicycling safe for all ages and abilities. The greater
Portland region is known for its proximity to nature, and these investments will preserve
and improve access to trails and parks and provide important connections to 2040
centers, transit and other daily destinations.

Freight access projects improve access and mobility for national and international rail,
air, and marine freight to reach destinations within the region’s industrial areas, as well as
to the regional throughway system. This includes road and railroad crossing upgrades,
port and marine and air terminal improvements and rail yard and rail track upgrades.

Information and technology investments improve the efficiency of the existing system
and the way travel demand and transportation systems are managed. This includes
providing programs and incentives to encourage walking, biking, use of transit,
telecommuting and shared trips and using technology, such as transit priority at
intersections and traffic signal coordination, to smooth traffic flow. Other examples
include mobility wallets and Safe Routes to School programming.

Figure 5.9: 2023 RTP Total Estimated Investments by Category (YOE$)

Source: Metro Draft 2023 RTP Constrained Project List (7/10/23)

These are preliminary estimates that will be finalized as part of the RTP adoption.

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5.4.2 Adequately maintaining the transportation system

The RTP is a crucial tool to help maintain the existing

Defining terms
transportation system; it recognizes the importance of
State of Good Repair
prioritizing maintaining the system we have before building new
A capital asset in a
infrastructure. Adequately operating and maintaining the condition sufficient to
transportation system means that today’s transportation system operate at a full level of
performance.
remains in a state of good repair. 22 Operations and Maintenance
(O&M) of the transportation system is the largest investment cost
type; the ongoing operations, upkeep, and maintenance of public transit, roadways,
bridges, and throughways will total $11 billion, or 57 percent of total transportation
spending between 2023 and 2030. The share of spending on maintenance and operations
is expected to increase to be 63 percent of total spending between 2031 and 2045 as the
transportation system ages and grows. Figure 5.10 shows the estimated investments
towards O&M as a proportion of total estimated spending in the 2023 RTP.

Figure 5.10 2023 RTP Total Estimated Capital and O&M Investments (YOE$)

Capital projects

37%
$68.5 billion
2023-2045
Constrained

Operations and maintenance

63%
Source: Metro Draft 2023 RTP Constrained Project List (7/10/23)
These are preliminary estimates that will be finalized as part of the RTP adoption.

22
As defined in 49 CFR §625.5 “State of Good Repair (SGR)”.

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The greater Portland region has many O&M priorities across different modes and types of
infrastructure. They include:
• Preserving and updating aging roads, bridges, and throughways, including on-street
active transportation facilities, to a state of good repair, including pavement
resurfacing, street cleaning, preventative maintenance, replacement of culverts, and
joint repair and seismic retrofits for bridges.
• Preventative maintenance of transit fleets and facilities, as well as replacement of
aging vehicles and infrastructure to maintain a state of good repair.
• Ongoing operation of existing and new transit services such as bus, rail, shuttles, and
transit vehicle purchases for new service and the supporting facilities and
technologies to operate them (automatic vehicle locators, fare payment systems,
dispatch).
• Providing for the security of transportation infrastructure (crowd control, security,
surveillance).
• Enhancing corridors and routes for emergency services.

The next section presents the full breakdown of RTP constrained costs by each
investment category and investment time period. The investment scenarios developed for
this RTP are as follows:
Near Term: 2023 – 2030
• The near-term constrained scenario includes projects that the region can
reasonably expect to build between 2023 and 2030 with the funds that are likely
to be available during this time. The highest priority projects in the region typically
end up in this scenario.
Long Term: 2031 – 2045

• The long-term constrained scenario includes projects that the region can
reasonably expect to build with the funds that are likely to be available during this
time. This scenario covers twice as many years as the near-term constrained
scenario, and its budget is also roughly double the size.
Total: 2023 – 2045
• The total constrained scenario includes both the near- and long-term constrained
scenarios, and therefore all investments that the region can reasonably expect to fund
between 2023 and 2045. Table 5.4 provides a quick reference for comparing the
relative cost of the short-term Constrained list and long-term Constrained list. The

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 total costs shown are based on the funding assumptions described in Sections 5.3 and
5.4 of this chapter.

Table 5.4 Estimated costs for Constrained RTP Investment Strategy, 2023-2045
Constrained RTP Project List Costs
Near Term Long Term Total
2023-2030 2031-2045 2023-2045
RTP Capital Projects and Programs (YOE$)
Transit Capital Investments 1.02 billion 1.64 billion 2.66 billion

Throughways (incl. tolling) 3.15 billion 2.13 billion 5.27 billion

Roads and Bridges 3.10 billion 4.36 billion 7.47 billion

I-5 Interstate Bridge Replacement (IBR) - 6.00 billion 6.00 billion

Freight Access 0.07 billion 0.31 billion 0.38 billion

Active Transportation (walking + biking) 0.95 billion 2.12 billion 3.07 billion

Information and Technology 0.16 billion 0.41 billion 0.57 billion

Other Regional Activities 0.02 billion 0.05 billion 0.07 billion

Total estimated RTP Capital Costs
8.48 billion 17.01 billion 25.49 billion
(YOE$)
RTP Operations and Maintenance (O&M) (YOE$)
Transit Service and Operations 5.84 billion 16.74 billion 22.58 billion

Transit Maintenance 1.26 billion 3.70 billion 4.96 billion

Throughways, Roads, Bridges O&M 3.95 billion 11.47 billion 15.42 billion

Total estimated RTP O&M Costs (YOE$) 11.04 billion 31.91 billion 42.96 billion

Total estimated RTP Costs (YOE$) 19.5 billion 48.9 billion 68.5 billion
Source: Draft 2023 RTP Constrained Project List (7/10/23)
These are preliminary estimates that will be finalized as part of the RTP adoption

Figure 5.12 show RTP capital investments broken down by investment category. Roads,
bridges, and walking and biking connections comprise the majority of projects in the
Constrained RTP project list, though the cost of projects vary greatly.

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Figure 5.11 Cost and number of Constrained RTP capital projects by investment area (YOE$)

Source: Draft 2023 RTP Constrained Project List (7/10/23)

Figure 5.12 Number and type of Constrained RTP capital projects by Project Cost (YOE$)

Source: Draft 2023 RTP Constrained Project List (7/10/23)

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5.5 DEMONSTRATION OF FINANCIAL CONSTRAINT
Planned transportation spending is demonstrably balanced against
reasonably anticipated funding for the region.
The project costs presented in Figure 5.4, as well as ongoing expenditures, create the cost
targets for transportation investments in the region. As illustrated in Figure 5.3,
transportation revenues are a mix of federal, state, regional, and local revenues. The sum
of these funds creates the revenue target, which is the anticipated sum of Operations and
Maintenance funds as well as funding for capital projects. Metro worked with ODOT and
other partners to finalize the picture of state and federal funding that flows into the
region. This work supported the creation of the capital projects lists whose costs will be
constrained to the revenues forecast as available and documented in this report.

The RTP is federally required to demonstrate that the projects and programs included in
the plan to address transportation system needs do not cost more than reasonably
expected revenues to fund them. The RTP includes a federally constrained financial plan
that demonstrates the projects and programs in the plan can be implemented using
committed, available, or reasonably available revenue sources, while the existing
transportation system is being adequately operated and maintained. 23 The following
tables demonstrate fiscal constraint of the RTP project and program costs compared to
the forecasted revenues available to pay for them.

To demonstrate financial constraint, Table 5.5 compares the reasonably expected

revenues to the estimated costs of the capital projects included in the plan (see financially
constrained list of projects contained in Appendix A) and the costs of operating and
maintaining the transportation system in the region.

Table 5.5 Demonstration of Financial Constraint, 2023-2045 (YOE$)

Category Constrained Revenues Constrained Costs

Capital projects $29,078,780,000 $25,496,976,000
Operations and Maintenance $40,771,140,000 $42,951,883,000
Grand Total $69,849,920,000 $68,488,859,000
These are preliminary estimates that will be finalized as part of the RTP adoption. The
estimates are in year-of-expenditure dollars and rounded to the nearest $1,000.

23
As defined in 23 CFR §450.104 “Financially constrained or Fiscal constraint”.

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The revenue forecast demonstrates that $29.08 billion of funding, in year-of-expenditure
dollars, will be available for capital projects in the region during the time period of the
plan. This compares to $25.5 billion in costs for projects, in year-of-expenditure dollars.

Additionally, $40.77 billion of revenue is expected to be available for operations and

maintenance of the transportation system during the time period of the plan. This
compares to an estimate of $42.95 billion to operate and maintain the region’s
transportation system during that time period.

Table 5.6 and Table 5.7 break down these total revenues and costs to road-related and
transit-related revenues and costs.

Table 5.6 Road-related Revenue Forecast Compared to Total Costs, 2023 - 2045 (YOE$)

Category Constrained Revenues Constrained Costs

Capital projects $24,526,490,000 $22,838,836,000
Operations and Maintenance $14,699,470,000 $15,415,500,000
Grand Total $39,225,960,000 $38,254,336,000
These are preliminary estimates that will be finalized as part of the RTP adoption. The
estimates are in year-of-expenditure dollars and rounded to the nearest $1,000.

Table 5.7 Transit-related Revenue Forecast Compared to Total Costs, 2023 - 2045 (YOE$)

Category Constrained Revenues Constrained Costs

Capital projects $4,552,290,000 $2,658,140,000
Operations and Maintenance $26,071,670,000 $27,536,383,000
Grand Total $30,623,960,000 $30,194,523,000
These are preliminary estimates that will be finalized as part of the RTP adoption. The
estimates are in year-of-expenditure dollars and rounded to the nearest $1,000.

The total revenues available for both transit capital and transit operations and
maintenance exceed expected costs for the planning period. More detailed information
about the forecasting assumptions, sources of funding accounted for and process used to
develop the financially constrained revenue forecast can be found in Appendix H.
Proposed investments in the regional transportation system are summarized in more
detail in Chapter 6.

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5.6 MOVING FORWARD TOGETHER TO FUND THE
TRANSPORTATION SYSTEM
More needs to be done to secure an equitable and accessible transportation
system for all.
The 2023 RTP will help make the case for more investment and funding to build, operate
and maintain the regional transportation system we need now and in the future. As the
previous section demonstrates, resources for the greater Portland region remain limited
in completing the system needed to support the area’s growing economy, labor force and
communities.

The above illustration lays out the region’s desired outcomes from investment in the
transportation system across the five RTP goal areas: equity, climate + resilience, safety,
mobility, and economy.

Although there are some exceptions, many of the projects identified in the RTP are
unfunded. Diminished resources mean reduced ability to improve, enhance and expand
infrastructure for a safe, reliable, healthy, and equitable system. More funding will be
needed to address the region’s transportation challenges and build a 21st century
transportation system as envisioned in community and regional plans. This is important
in that the greater Portland region cannot continue to fund transportation in the ways
that it has collected and allocated revenues in years past.

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As shown in the 2022 Equitable Transportation Funding Research Report funded by
Metro transportation funding practices today disproportionately burdens and harms
Black, Indigenous, and people of color (BIPOC) communities, low-income households, and
people with disabilities. Transportation funding can lead to different outcomes for
different communities; therefore, it is critical for regional partners to examine the varying
impacts and implications of existing and future funding strategies prior to
implementation.

The systems currently in place to raise revenues for transportation have been built over
many decades. The Equitable Funding Research report identified opportunities to
restructure revenue collection for existing, emerging, and new sources to be more
equitable. It also highlighted the need for new sources of revenues to fund the greater
Portland region’s growing needs and priorities, and to ensure spending decisions around
these revenues are equitable.

Transportation funding for streets and highways has long been primarily a state and
federal obligation, financed largely through gas taxes and other user fees such as a vehicle
registration fee. The purchasing power of federal and state gas tax revenues is declining
as individuals drive less and fuel efficiency increases. The effectiveness of this revenue
source is further eroded because the gas tax is not indexed to inflation. These monies are
largely dedicated to streets and highways – primarily maintenance and preservation –
and, to a limited extent, building more roads. We need to complete gaps in our region’s
transit, walking and biking networks to help expand affordable travel options, yet active
transportation currently lacks a dedicated funding source. The transit system has relied
heavily on payroll taxes for operations and competitive federal funding for high capacity
transit. But the region’s demand for frequent and reliable transit service exceeds the
capacity of local payroll tax to support it.

As we make the best use of our existing resources and work collectively to acquire new
resources, our region needs to work together to ensure that new resources and
investments build upon our previous ones in an equitable manner. Accordingly, we’ll need
to strive to align resources and leverage investments when possible to achieve the vision
set out in this Regional Transportation Plan.

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Chapter 6
Regional Programs and Projects to
Achieve Our Vision
2023 Regional Transportation Plan
July 10, 2023 Public Review Draft
TABLE OF CONTENTS
6.1 Introduction ................................................................................................................. 6-1

6.1.1 Addressing our most urgent needs through our investments ........................................ 6-1

6.1.2 Chapter organization ....................................................................................................... 6-2

6.2 What are the region’s investment priorities?................................................................. 6-3

6.2.1 Maintaining the system we have ................................................................................. 6-3

6.2.2 Implementing the 2040 Growth Concept .................................................................... 6-3

6.2.3 Enhancing Mobility Options ......................................................................................... 6-4

6.2.4 Building a Safe System ................................................................................................. 6-4

6.2.5 Ensuring an Equitable Transportation System ............................................................. 6-4

6.2.6 Supporting a Thriving Economy ................................................................................... 6-5

6.2.7 Implementing Climate Action and System Resilience ................................................. 6-5

6.3 RTP Projects and Programs ........................................................................................... 6-7

6.3.1 Developing the project lists............................................................................................. 6-7

6.3.2 RTP Constrained projects and programs....................................................................... 6-10

6.3.3 Transit capital projects and planned service................................................................. 6-28

6.3.4 Interstate Bridge Replacement Program and Throughway projects ............................ 6-30

6.3.5 Roads and bridges projects ........................................................................................... 6-32

6.3.6 Freight access projects .................................................................................................. 6-35

6.3.7 Active transportation projects ...................................................................................... 6-37

6.3.8 Transportation system management and operations projects .................................... 6-39

6.3.9 Transportation demand management projects ............................................................ 6-41

6.3.10 Other projects and programs to leverage capital investments .................................. 6-42

6.3.11 Transportation equity projects ................................................................................... 6-43

 6.3.12 Safety projects and safety benefit projects ................................................................ 6-44

6.3.13 Climate pollution reduction priorities ......................................................................... 6-46

6.3.14 Mobility priorities ........................................................................................................ 6-47

6.3.15 Economic development priorities ............................................................................... 6-48

6.3.16 Transit operations and maintenance costs ................................................................. 6-49

6.3.17 Throughway, roads and bridges operations and maintenance costs ......................... 6-50

6.4 Strategic project list .................................................................................................... 6-51

FIGURES
Figure 6.1 2023 RTP Investment Strategy.................................................................................... 6-6

Figure 6.2 RTP Projects Investments, 2017-2024 ........................................................................ 6-7

Figure 6.3 Greater Portland region: Map of Constrained RTP Projects .................................... 6-11

Figure 6.4 Total estimated investment by 2045 (YOE$) ............................................................ 6-14

Figure 6.5 Greater Portland region: Cost range of Constrained RTP projects by investment
category ..................................................................................................................................... 6-15

Figure 6.6 Greater Portland region: Cost and number of Constrained RTP projects by
investment category .................................................................................................................. 6-16

Figure 6.7 ODOT: Cost and number of Constrained RTP capital projects by investment category6-18

Figure 6.8 TriMet: Cost and number of Constrained RTP capital projects by investment
category ..................................................................................................................................... 6-19

Figure 6.9 SMART: Cost and number of Constrained RTP capital projects by investment
category ..................................................................................................................................... 6-19

Figure 6.10 City of Portland and Port of Portland: Cost of Constrained RTP capital projects by
investment category .................................................................................................................. 6-20

Figure 6.11 Map of all Constrained RTP capital projects within the City of Portland ............... 6-21

Figure 6.12 Clackamas County and Cities: Cost of Constrained RTP capital projects by
investment category .................................................................................................................. 6-22
Figure 6.13 Map of Constrained RTP Capital Projects in Urban Clackamas County.................. 6-23

Figure 6.14 East Multnomah County and Cities: Cost of Constrained RTP capital projects by
investment category .................................................................................................................. 6-24

Figure 6.15 East Multnomah County: Map of all Constrained RTP projects ............................. 6-25

Figure 6.16 Urban Washington County and Cities: Cost of Constrained RTP capital projects by
investment category .................................................................................................................. 6-26

Figure 6.17 Urban Washington County: Map of all Constrained RTP projects ......................... 6-27

Figure 6.18 Greater Portland region: Map of 2030 Constrained RTP transit capital projects and
planned service .......................................................................................................................... 6-29

Figure 6.19 Greater Portland region: Map of 2045 Constrained RTP transit capital projects and
planned service .......................................................................................................................... 6-30

Figure 6.20 Greater Portland region: Map of Constrained RTP throughway projects and the
Interstate Bridge Replacement Program ................................................................................... 6-32

Figure 6.21 Greater Portland region: Map of Constrained RTP roads and bridges projects..... 6-34

Figure 6.22 Greater Portland region: Map of Constrained RTP Seismic Resilience Priorities ... 6-35

Figure 6.23 Greater Portland region: Map of Constrained RTP freight access projects .......... 6-37

Figure 6.24 Greater Portland region: Map of Constrained RTP active transportation projects 6-38

Figure 6.25 Greater Portland region: Map of Constrained RTP information and technology
priorities ..................................................................................................................................... 6-41

Figure 6.26 Greater Portland region: Map of Constrained RTP Equity Priority Projects .......... 6-44

Figure 6.27 Greater Portland region: Map of Constrained RTP Priorities with Safety Benefit 6-46

Figure 6.28 Greater Portland region: Map of Constrained RTP Climate Pollution Reduction
Priorities ..................................................................................................................................... 6-47

Figure 6.29 Greater Portland region: Map of Constrained RTP priorities that complete network
gaps and include priority multimodal design elements ............................................................ 6-48

Figure 6.30 Greater Portland region: Map of Constrained Priorities that Support Economic
Development.............................................................................................................................. 6-49
 TABLES
Table 6.1 2023 RTP Project Lists .................................................................................................. 6-8

Table 6.2 Opportunities for jurisdictional partners to further advance RTP goals in the near-
term............................................................................................................................................ 6-10

Table 6.3 Estimated costs for Constrained RTP Investment Strategy ....................................... 6-13

Table 6.4 Summary of major planned throughway and transit investments............................ 6-17

Table 6.5 Summary of Constrained RTP transit capital projects and planned service .............. 6-28

Table 6.6 Summary of Constrained RTP throughway projects, including Interstate Bridge
Replacement Program ............................................................................................................... 6-31

Table 6.7 Summary of Constrained RTP roads and bridges projects ........................................ 6-33

Table 6.8 Summary of Constrained RTP freight access projects ............................................... 6-36

Table 6.9 Summary of Constrained RTP active transportation projects ................................... 6-38

Table 6.10 Summary of Constrained RTP transportation system management and operations
projects ...................................................................................................................................... 6-40

Table 6.11 Summary of Constrained RTP transportation demand management projects ....... 6-42

Table 6.12 Summary of Constrained RTP safety benefit projects ............................................. 6-45

Table 6.13 Summary of Constrained RTP transit operations and maintenance projects ......... 6-49

Table 6.14 Summary of Constrained RTP throughway, roads and bridges operations and
maintenance projects ................................................................................................................ 6-50

Table 6.15 Estimated costs for RTP Constrained and Strategic Project Lists ............................ 6-51
6.1 INTRODUCTION
The programs and projects described in this chapter
support the RTP vision and goals for transportation in
the region and will help achieve the six desired
outcomes endorsed by the Metro Policy Advisory
Committee (MPAC) and approved by the Metro Council
in 2008:
• Vibrant communities
• Economic prosperity
• Safe and reliable transportation
• Leadership on climate change
RTP Vision
• Clean air and water
Everyone in the greater Portland region
• Equity will have safe, reliable, affordable,
efficient, and climate-friendly travel
Projects and programs come from adopted local, options that allow people to choose to
regional or state planning efforts that provided drive less and support equitable, resilient,
healthy and economically vibrant
opportunities for public input. The vision and goals communities and region.
identified in Chapter 2 served as the foundation for
updating and evaluating the plan’s project priorities.

6.1.1 Addressing our most urgent needs through our investments

We know the transportation funding landscape is changing, and building a safe, reliable
and sustainable transportation system requires directed and thoughtful, long-term
investment. Within our current funding scenario we don’t have the resources to invest at
the levels needed to address all of the challenges the region faces. Prioritizing where and
how to invest limited transportation funding is a key part of developing and
implementing this plan.

Prioritization starts with understanding the challenges we need to address. Regional

trends and challenges were identified through the Regional Transportation Plan (RTP)
update engagement process. The RTP investment strategy was developed to address
these challenges and achieve the investment priorities discussed in the next section. See
Chapter 4 for more information on each of the challenges listed below.
• Aging infrastructure
• Climate change and air quality

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• Congestion and reliability
• Fatal and life-changing crashes
• Earthquake vulnerability, security and emergency management
• Gaps in transit, biking and walking connections
• Social inequity and disparities
• Housing and transportation affordability and displacement
• Technological change

6.1.2 Chapter organization

This chapter describes how the region plans to invest in the transportation system across
all modes, with expected funding, to provide a safe, reliable, healthy and affordable
transportation system with travel options.

6.1 Introduction: This section introduces the chapter, including challenges the region is
facing that the project lists address.

6.2 What Are the Region’s Investment Priorities? This section describes the
investment priorities identified through the update of the RTP. The projects were
submitted by jurisdictional partners, transportation agencies and a federally-recognized
tribe to address the identified transportation needs and communities priorities, with a
focus on adequately maintaining the existing transportation system, implementing the
2040 Growth Concept and advancing the RTP goals, particularly near-term regional
priorities for improving safety, advancing equity, and reducing climate pollution.

6.3 Constrained RTP Projects and Programs: This section describes the 2023-2045
Constrained RTP project list, which are the projects and programs that fit within the
constrained budget of federal, state and local funds the greater Portland region can
reasonably expect through 2045 under current funding trends. These projects are
referred to as the Constrained RTP list throughout this chapter, and are categorized as
near-term priorities (2023-2030) and long-term priorities (2031-2045).

6.4 Strategic RTP Projects and Programs: This section describes the Strategic list of
projects and programs, which are additional priority projects the region would pursue to
address the region’s transportation needs, but for which funding has not been identified.
For analysis purposes, these projects are assumed to be completed in the 2031-2045 time
period.

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6.2 WHAT ARE THE REGION’S INVESTMENT PRIORITIES?
The Regional Transportation Plan (RTP) implements the 2040 Growth Concept through
an approach that views the transportation system as an integrated and interconnected
system that supports planned land uses, shifting the emphasis from simply moving
vehicles to moving people, goods and services, providing access to jobs and other
destinations, and helping to create and connect places and people.

During the update of the RTP, regional investment priorities were identified to address
the challenges listed in the previous section. These regional transportation investment
priorities are described below and guided the development and refinement of the 2023
RTP investment strategy. In particular, the projects and programs in the RTP investment
strategy focused on advancing near-term regional priorities for improving safety,
advancing equity, and reducing climate pollution.

Technological change, housing and transportation affordability and displacement,

changing demographics and an aging population, and social inequities and disparities are
major societal trends and shifts which impact and are impacted by investments in the
regional transportation system.

Policies, projects and programs in the RTP seek to address these regional trends and
challenges in ways that help achieve the region’s six desired outcomes, RTP goals and
make progress on near-term regional priorities for improving safety, advancing equity,
and reducing climate pollution.

6.2.1 Maintaining the system we have

The RTP is an important to tool to help maintain a state of good repair for the existing
transportation system. The RTP recognizes the importance of system maintenance we
before building new roadways. Maintenance of the transportation system is the largest
transportation cost and continues to grow. Maintaining and updating aging
infrastructure, retrofitting to address earthquake vulnerability, and providing for security
and routes for efficient emergency services are growing concerns across the region.

6.2.2 Implementing the 2040 Growth Concept

Implementing the 2040 Growth Concept is one of the main roles of the RTP. The RTP
recognizes the importance of prioritizing transportation investments in the 2040 growth
areas to support the region’s economic vitality and commercial activity. These are the
areas where the greatest growth is planned for and where the most trips will likely be
occurring:

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• Portland central city, regional centers and town centers
• Station communities
• Main streets and corridors
• Industrial and employment areas
• Urban growth boundary expansion areas

Transportation investments also play an important role in placemaking, which helps

achieve the 2040 Growth Concept vision for a strong economy, a healthy environment and
communities that serve the needs of all. Refer to Chapter 3 for more information on the
2040 Growth Concept.

6.2.3 Enhancing Mobility Options

The 2023 Regional Transportation Plan is a key tool

for enhancing the mobility options for all users
across the region. Strategic investments ensure that
People and businesses can reach the jobs, goods,
services and opportunities they need by well-
connected, low-carbon travel options that are safe,
affordable, convenient, reliable, efficient, accessible,
and welcoming.

6.2.4 Building a Safe System

The 2023 RTP aims to support the Regional Transportation Safety Strategy and achieve
the region’s Vision Zero target to eliminate traffic deaths and life changing injuries by
2035. The RTP prioritizes transportation investments that will move the region as quickly
as possible towards Vision Zero, especially in communities of color and other
marginalized communities that experience disparate impacts from traffic crashes.

6.2.5 Ensuring an Equitable Transportation System

Data continues to show that our current transportation unequally distributes disparities
on Black, Indigenous and people of color and people with low incomes. The RTP
prioritizes transportation investments that will move the region as quickly as possible
towards Vision Zero, and enhance the amount of reliable, safe, and affordable
transportation options for the communities who need it most.

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6.2.6 Supporting a Thriving Economy

In addition to ensuring residents of this region have safe, reliable, and affordable
transportation options, the Regional Transportation Plan also works to ensure that the
region’s centers, ports, industrial areas, and employment areas are accessible through a
variety of modes so that communities and businesses can thrive and prosper
economically.

6.2.7 Implementing Climate Action and System Resilience

The 2023 Regional Transportation Plan is a key tool for implementing the region’s
adopted Climate Smart Strategy. The Regional Transportation plan aims to ensure that
people, communities and ecosystems are protected, healthier and more resilient and
carbon emissions and other pollution are substantially reduced as more people travel by
transit, walking and bicycling and people travel shorter distances to get where they need
to go. The RTP prioritizes transportation investments that help reduce greenhouse gas
emissions from cars and small trucks while making our transportation system safe,
reliable, healthy and affordable.

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Figure 6.1 2023 RTP Investment Strategy

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6.3 RTP PROJECTS AND PROGRAMS
The policy sections in Chapter 2 and Chapter 3 of the RTP set the vision, goals, objectives,
performance targets and policies for the greater Portland region’s system of throughways,
arterials, bridges, bikeways, sidewalks, and transit and freight routes.

The project lists, described in this chapter and provided in Appendices A and B, are
priority projects from local, regional or state planning efforts that provided opportunities
for public input. Projects in the 2023-2030 and 2031-2045 Constrained RTP investment
strategies are eligible for federal or state transportation funding and must be part of the
planned regional transportation system.

Figure 6.2 RTP Projects Investments, 2017-2024

Since the last update of the RTP in 2018, of the 1,123 projects listed in the RTP, 170 have
been built or will be completed by 2024 – a total of nearly $3 billion invested in the
regional transportation system.

6.3.1 Developing the project lists

The update to the plan brings together the input of thousands of people who live, work
and travel across the greater Portland region. Members of the public from across the

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region shared their transportation needs and priorities through a series of online surveys,
forums, and events hosted by community-based organizations and Metro. Engagement
activities centered historically underrepresented communities, including people of color,
youth, and people with limited English proficiency. This input shaped the updated vision
and goals identified in Chapter 2 to serve as the foundation for updating and evaluating
the plan’s project priorities. The needs and priorities are described in Chapter 4.

Metro staff also worked in cooperation with staff from cities, counties an transportation
agencies to develop a forecast of revenues raised at the federal, state, regional and local
levels for transportation projects and programs to be included or accounted for in the
2023 RTP. Described in Chapter 5, the draft forecast provides an estimate of how much
funding can be reasonably expected to be available during the life of the plan (2023-2045)
both for capital projects and for maintaining and operating the existing transportation
system. As a result, the revenue forecast serves as a budget for the updated financially
constrained RTP project list. This means the total cost of the updated financially
constrained RTP project list must not exceed the revenues forecasted to be available
through 2045.

In January 2023, Metro issued a call for projects and coordinated with local, regional and
state partners to begin updating the region’s transportation investment priorities into
three separate project lists, shown in Table 6.1.

Table 6.1 2023 RTP Project Lists

The 2030 Constrained Project List identifies the highest priority projects
Near-term
and programs that the greater Portland region can reasonably expect to
Constrained
fund in the near-term – (2023-2030).

The 2045 Constrained Project List includes all of the projects and
Long-term programs that fit within a constrained budget of federal, state and local
Constrained funds the greater Portland region can reasonably expect to fund in the
long-term (2031-2045).

The 2045 Strategic Project List includes additional priority investments

(not constrained to the budget based on current funding trends) that
Long-term could be built with additional resources. These projects are not
Strategic anticipated to be completed unless new, as of yet identified funding
becomes available. For analysis purposes, these projects are assumed to
be implemented in the 2031 to 2045 time period.

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Considering the RTP policy framework and working within financially constrained budget
and funding targets, Clackamas, Multnomah and Washington counties and the cities
within each county recommended priority projects for their jurisdictions at county
coordinating committees. The Oregon Department of Transportation (ODOT), the Port of
Portland, TriMet, SMART and other agencies worked with county coordinating
committees and the City of Portland to recommend priority projects. The City of Portland
recommended projects after reviewing priorities with its community advisory
committees.

These projects were submitted to Metro by jurisdictional partners in February 2023 to

build the draft project lists for technical evaluation and public review in Spring 2023.
Metro also consulted with the Confederated Tribes of the Grand Ronde. The consultation
process resulted in the Tribe nominating a complete streets project to the draft
constrained project list.

Following the first round of technical analysis, Metro engaged the public, regional
policymakers and agencies responsible for developing the project lists in review and
discussion of the project list assessment and system-level evaluation findings described
in Chapter 7, and public feedback on the draft project list.

Common themes heard during the Spring 2023 engagement 1 and throughout the process
included:
• Safety is the top priority.
• Climate and equitable transportation are also important outcomes to focus on in the
near-term.
• Investments in biking and walking, transit and roads and bridges are top priorities.
• Maintenance is a top community priority.

Considering analysis findings described in Chapter 7 and subsequent public and

stakeholder input, Metro staff identified opportunities for agencies to refine their
respective draft list of projects to better meet safety, equity and climate goals in the near-
term. Table 6.2 summarizes opportunities identified by Metro staff to inform refinement
of the Constrained RTP project lists to accelerate projects that improve safety, reduce
climate emissions – particularly in equity focus areas and on the regional high injury
corridors.

1
Summary reports of all engagement activities are available on the project website at:
[Link]

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Table 6.2 Opportunities for jurisdictional partners to further advance RTP goals in the near-
term
1 Update descriptions to specify project features that will advance RTP goals, particularly the safety,
climate and equity goals.
2 Re-prioritize or shift project timing to accelerate projects to the near-term list that:
• invest in safety on and around transit
• ensure all projects in high injury corridors address safety to reduce the likelihood and
severity of crashes for all travelers
• complete regional network gaps, particularly biking, walking and transit networks
• fill gaps for biking and walking in high injury corridors or that provide connections to
transit, schools, jobs and 2040 centers
• invest in Equity Focus Areas
3 Accelerate transit service expansion. Increase transit service as much as possible, focusing new and
enhanced transit service to connect transit to underserved communities to jobs and community
places, in major travel corridors and in areas with more jobs and housing.
4 Specify locations of bundled safety and active transportation projects on urban arterials so they can
be evaluated against regional goals. This includes projects that fill gaps for biking and walking in
high injury corridors or that provide connections to transit, schools, jobs and 2040 centers.

In Spring 2023, Metro staff presented these opportunities for consideration by cities,
counties and transportation agencies. A small number of project list updates were
submitted in May 2023 that are reflected in the plan. Additional refinements may be
identified by partners as part of finalizing the plan for consideration by JPACT and the
Metro Council in Fall 2023, as they consider public feedback in Spring 2023 and during
the public comment period.

6.3.2 RTP Constrained projects and programs

This section describes the RTP Constrained list of projects and programs – the list of
priority investments that the region can reasonably assume it will complete based on
funding assumptions described in Chapter 5. Figure 6.3 shows the general location of
projects on the RTP Constrained list of projects region-wide. For an interactive map of the
projects visit [Link]/rtp.

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Figure 6.3 Greater Portland region: Map of Constrained RTP Projects
Click on map to open the online version

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Table 6.3 shows the breakdown of RTP projects in the constrained lists by investment
category, and provides a quick reference for comparing the relative cost of the near-term
and long-term Constrained investment strategies. The 2023-2045 Constrained costs
shown in Table 6.3 include the 2023-2030 Constrained RTP project costs plus estimated
costs for additional projects that could be implemented from 2031 to 2045 based on the
funding assumptions described in Chapter 5.

Table 6.3 Estimated costs for Constrained RTP Investment Strategy

Near-term Long-term Total
RTP Capital Costs Constrained Constrained Constrained
2023-2030 2031-2045 2023-2045
I-5 Interstate Bridge Replacement (IBR) Program -- $6.0 billion $6.0 billion
Transit capital $1.0 billion $1.6 billion $2.7 billion
Throughways capital (includes tolling) $3.2 billion $2.1 billion $5.3 billion
Roads and bridges capital $3.1 billion $4.4 billion $7.5 billion
Freight access $74 million $307million $381 million
Walking and biking $955 million $2.1 billion $3.1 billion
Information and technology $165 million $408 million $573 million
Near-term Long-term Total
RTP Operations and Maintenance Costs*
2023-2030 2031-2045 2023-2045
Transit operations and maintenance $5.8 billion $16.7 billion $22.6 billion
Transit maintenance $1.3 billion $3.7 billion $5.0 billion
Roads and throughways operations and
$4.0 billion $11.5 billion $15.4 billion
maintenance
Total estimated costs
$19.53 billion $48.92 billion $68.45 billion
(in year-of-expenditure dollars)
Source: Draft 2023 RTP Financially Constrained Project List. Costs are in year-of-expenditure dollars and have
been rounded.
*Operations and maintenance costs are pending further review and subject to refinement.

Projects and programs identified in the 2031-2045 Strategic list are not described in this
section because funding has not been identified. Refer to Section 6.4 for costs by project
type associated with the strategic list. The 2045 Strategic list of projects can be viewed in
Appendix B.

Why the Constrained project list matters

In order to be eligible for federal or state transportation funding, a project must be

included on the “Constrained” list and must be part of the planned regional transportation
system.

The region’s operations and maintenance commitments are significant and consume most
federal, state, and local revenues identified for the greater Portland region through 2045

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estimated $43 billion. The RTP Constrained list of capital projects represents another
$25.5 billion in capital investment in the region’s transportation system. A well-
maintained, complete and efficient transportation system must meet multiple needs and
offer options for people, goods and services to get around.

Figure 6.4 shows the total estimated cost of the RTP Constrained list of capital projects
and estimated operations and maintenance of the transportation system by investment
category for the period 2023-2045.

Figure 6.4 Total estimated investment by 2045 (YOE$)

Source: 2023 RTP Financially Constrained Project List. Costs are in year-of-expenditure dollars and have been
rounded. Operations and maintenance costs are pending further review and subject to refinement.
Notes for Figure 6.4

1. Year of Expenditure $ represent current year costs inflated to a projected cost for the year of
expenditure.
2. Totals and percentages may not add up due to rounding.
3. Road and bridge projects include street reconstructions, new street connections and widening, and
throughway overcrossings with designs that support walking and biking to provide mobility and
access for all modes of travel.
4. Freight access projects improve access and mobility for national and international rail, air and
marine freight to reach destinations within the region’s industrial areas and to the regional
throughway system.
5. The I-5 Interstate Bridge Replacement (IBR) Program is reported separately due to the overall cost
and mix of investments that would be constructed as part of the project. The project would replace
I-5/Columbia River bridges, add auxiliary lanes and improve interchanges on I-5, extend light rail
transit from Expo Center to Vancouver, WA, add walking and biking facilities and implement
variable rate tolling.

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The figures that follow show the breakdown of capital projects by cost and number for
each investment category, for the region, for the City of Portland and for each of the three
counties. A map of the location of all RTP constrained capital projects is also provided for
the region, the City of Portland and each county.

Greater Portland region

Figures 6.5 and Figure 6.6 show RTP investments broken down by investment category.
Roads, bridges, and walking and biking connections comprise most projects in the
Constrained RTP project list, though the cost of projects vary greatly.

Figure 6.5 Greater Portland region: Cost range of Constrained RTP projects by investment
category

Costs are in year of expenditure dollars and have been rounded. Road and transit operations and maintenance
costs are not included in the information presented here.

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Figure 6.6 Greater Portland region: Cost and number of Constrained RTP projects by
investment category

Source: 2023 RTP Financially Constrained Project List. Costs are in year of expenditure dollars and have been
rounded to the nearest hundred million. Road and transit operations and maintenance costs are not included in
the information presented here.

Road and bridge projects often include “complete street” reconstructions, arterial street
connectivity and widening, and highway overcrossings provide mobility and access for all
modes of travel. Some projects are also focused on improving access and mobility for
national and international rail, air and marine freight to reach destinations within the
region’s industrial areas and to the regional throughway system. These projects are
categorized as freight access investments. Strategic throughway capacity was added to
maintain statewide mobility and access to industrial areas and intermodal facilities.
Transit capital projects include high-capacity transit extensions and implementing
regional, corridor or spot-specific projects to improve speed and reliability of bus and
streetcar service. Walking and biking projects fill important gaps in sidewalks, bikeways
and trails to make biking and walking safe, convenient and accessible for all ages and
abilities. Technology continues to play a critical role in transportation system
improvements. More projects are focused entirely around implementing new technology
or maximizing existing technology to improve system efficiency in the region’s major
travel corridors.

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Table 6.4 identifies the major throughway and transit projects in the RTP.

Table 6.4 Summary of major planned throughway and transit investments

2045 Constrained 2045 Strategic
2030 Constrained
(2030 Constrained, plus) (2045 Constrained, plus)
• I-5 IBR, pre-construction • I-5/Interstate Bridge • Sunrise Project Ph. 3
Throughway tolling (10866) Replacement Program (12020)
• I-5/Rose Quarter (10866) • I-5 NB auxiliary lane
Improvement Project • OR 212/224 Sunrise Project extension Ph. 3 (11583)
(10867, 11176) Ph. 2 (CON) (11301) • I-5/OR 217 Interchange Ph.
• I-205/Abernethy Bridge • I-5 Boone Bridge and 2 (11302)
(11969, under construction) Seismic Improvement • OR 217 capacity
• I-205 widening and I-205 Project (CON) (11990) improvements (11582)
Toll Project (11586, 11904, • I-5 NB braided ramps • OR 217 NB auxiliary lane
12099) (11989) extension (11976)
• I-5 and I-205: Regional • I-5 NB auxiliary lane • US 26 widening (11393)
Mobility Pricing Project extension Ph. 2 (11402)
(12304) • I-5 SB truck climbing lane
• OR 212/224 Sunrise Project (11984)
Ph. 2 (PE, RW) (10890) • OR 217 SB braided ramps
• OR 224 WB widening (11988)
(11350) • US 26/185th Avenue on-
• I-5 Boone Bridge and ramp widening (12148)
Seismic Improvement
Project (PE, RW) (12305)
• MAX Red Line • I-5/Interstate Bridge • Southwest Corridor (CON)
High Improvements (10922, Replacement Program (11587)
Capacity under construction) (10866) • Steel Bridge Transit
• Southwest Corridor (PD) • Southwest Corridor (PD, PE, Bottleneck (CON) (10921)
Transit (12322, 12301) RW) (12292, 12300) • Beaverton-Hillsdale
• 82nd Avenue Transit • Steel Bridge Transit Highway Corridor HCT
Project (12029) Bottleneck (PD) (12050) (12290)
• Tualatin Valley Highway • Burnside/Stark Corridor
Transit Project 11589) HCT (12286)
• Montgomery Park Streetcar • Lombard/Cesar Chavez
(11319) Corridor HCT (12288)
• Martin Luther King Jr.
Corridor HCT (12287)
• SW 185th Corridor HCT
(12289)
• Sunset Highway Corridor
HCT (11912)
• Forest Grove HCT (10771)
• AmberGlen/N. Hillsboro
Streetcar (11278, 11573)
• Johns Landing Streetcar
(11639)
• WES expansion to Salem
(11751)

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 2045 Constrained 2045 Strategic
2030 Constrained
(2030 Constrained, plus) (2045 Constrained, plus)
• East Burnside/SE Stark • Cornell/Barnes/ Line 48 • 99W Enhanced Transit
Better Bus Enhanced Transit Project Enhanced Transit Project Project (12176)
(12030) (12063) • Additional transit
• Lombard/Cesar Chavez • 185th and Farmington/Line supportive projects region-
Enhanced Transit Project 52 Enhanced Transit Project wide
(12034) (12064)
• NE MLK Jr Blvd Enhanced • Inner North Portland
Transit Project (12027) (Vancouver/Williams/
• NE Sandy Blvd Enhanced Mississippi/Albina)
Transit Project (12028) Enhanced Transit Project
• SE Belmont Enhanced (11833)
Transit Project (12033) • ETC/Rose Lanes Transit
• SE Hawthorne/Foster Ave Improvement Fund (12232)
Enhanced Transit Project • Additional transit
(11834) supportive projects region-
• Portland Central City wide (including 11441,
Portals Enhanced Transit 10805 and 10846)
(11761)
• SE Powell Blvd Enhanced
Transit Project (12035)
• SW Beaverton-Hillsdale
Hwy Enhanced Transit
Project (12032)
• 122nd Avenue Corridor
Transit Improvements
(11868)
• Additional transit
supportive projects region-
wide (including 10779 and
11440)

Note: Projects shown in blue text have completed NEPA work (or NEPA work is underway). RTP IDs are shown in
italics. See Chapter 8 (Section 8.3) for a summary of completed and current major project development activities
in the region.

ODOT Projects

Figure 6.7 shows the cost of RTP investments submitted by ODOT broken down by
investment category. The I-5 IBR Program comprises nearly half of ODOT’s $12.61 billion
constrained project list with less than 1% being allocated towards walking and biking. See
Section 6.3.14 for more information on region-wide road operations, maintenance and
preservation costs.

Figure 6.7 ODOT: Cost and number of Constrained RTP capital projects by investment
category

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Source: 2023 RTP Financially Constrained Project List. Costs are in year-of-expenditure dollars and have been
rounded. The information includes capital projects submitted by ODOT. Road, bridge and throughway operations
and maintenance costs are not included.

TriMet Projects

Figure 6.8 shows the cost of RTP transit capital investments submitted by the TriMet
broken down by investment category. TriMet transit capital projects comprise the
majority of TriMet’s capital project costs in the Constrained RTP project list. See Section
6.3.13 for more information on region-wide transit operations and maintenance costs.

Figure 6.8 TriMet: Cost and number of Constrained RTP capital projects by investment
category

Source: 2023 RTP Financially Constrained Project List. Costs are in year-of-expenditure
dollars and have been rounded. Costs are in year-of-expenditure dollars and have been
rounded. The information includes capital projects submitted by TriMet. Transit capital
projects submitted by cities and counties and transit operations and maintenance costs
are not included.

SMART Projects

Figure 6.9 shows the cost of RTP investments submitted by SMART broken down by
investment category. SMART transit service and operations comprise the majority of
SMART’s projects in the Constrained RTP project list. See Section 6..[Link] for more
information on region-wide transit operations and maintenance costs.

Figure 6.9 SMART: Cost and number of Constrained RTP capital projects by investment
category

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Source: 2023 RTP Financially Constrained Project List. Costs are in year-of-expenditure dollars and have been
rounded. Costs are in year-of-expenditure dollars and have been rounded. The information includes capital
projects submitted by SMART. Transit operations and maintenance costs are not included.

City of Portland and Port of Portland Projects

Figures 6.10 shows the cost and number of RTP investments submitted by the City of
Portland and Port of Portland broken down by investment category. Roads, bridges, and
walking and biking connections comprise the majority of projects in the Constrained RTP
project list.

Figure 6.10 City of Portland and Port of Portland: Cost of Constrained RTP capital projects by
investment category

Source: 2023 RTP Financially Constrained Project List. Costs are in year-of-expenditure dollars and have been
rounded. The information includes capital projects submitted by the City of Portland and the Port of Portland.
Capital projects submitted by ODOT, TriMet and SMART as well as road and transit operations and maintenance
costs are not included.

Figure 6.11 includes all projects that fall within City of Portland boundary, including
projects submitted by other jurisdictions and agencies.

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Figure 6.11 Map of all Constrained RTP capital projects within the City of Portland

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Urban Clackamas County and Cities of Clackamas County Projects

Figures 6.12 shows the cost and number of RTP investments submitted by Clackamas
County and its cities broken down by investment category. Roads, bridges, and walking
and biking connections comprise the majority of projects in the Constrained RTP project
list.

Figure 6.12 Clackamas County and Cities: Cost of Constrained RTP capital projects by
investment category

Costs are in year-of-expenditure dollars and have been rounded. The information includes capital projects
submitted by Clackamas County and cities in Clackamas County. Capital projects submitted by ODOT, TriMet and
SMART as well as road and transit operations and maintenance costs are not included.

Figure 6.13 shows the general location of all Constrained RTP projects located in
Clackamas County. The map includes all capital projects submitted, including projects
submitted by other jurisdictions and agencies.

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Figure 6.13 Map of Constrained RTP Capital Projects in Urban Clackamas County

Multnomah County and Cities in East Multnomah County Projects

Figures 6.14 shows the cost and number of RTP investments submitted by Multnomah
County and its cities (except Portland) broken down by investment category. Roads and
bridges projects comprise a majority of costs and number of projects due in large part to
the County’s six Willamette River bridges.

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Figure 6.14 East Multnomah County and Cities: Cost of Constrained RTP capital projects by
investment category

Source: 2023 RTP Financially Constrained Project List. Costs are in year-of-expenditure dollars and have been
rounded. Costs are in year-of-expenditure dollars and have been rounded. The information includes capital
projects submitted by Multnomah County and cities in Multnomah County (except for the city of Portland).
Capital projects submitted by ODOT, TriMet and SMART as well as road and transit operations and maintenance
costs are not included.

Figure 6.15 shows the general location of all Constrained RTP projects located in
Multnomah County. The map includes all capital projects submitted, including projects
submitted by other jurisdictions and agencies.

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Figure 6.15 East Multnomah County: Map of all Constrained RTP projects

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Urban Washington County and Cities in Washington County Projects

Figures 6.16 shows the cost and number of RTP investments submitted by Washington
County and its cities broken down by investment category. Roads, bridges, and walking
and biking connections comprise the majority of projects in the Constrained RTP project
list.

Figure 6.16 Urban Washington County and Cities: Cost of Constrained RTP capital projects by
investment category

Source: 2023 RTP Financially Constrained Project List. Costs are in year-of-expenditure dollars and have been
rounded. Costs are in year-of-expenditure dollars and have been rounded. The information includes capital
projects submitted by Washington County and cities in Washington County. Capital projects submitted by ODOT,
TriMet and SMART as well as road and transit operations and maintenance costs are not included.

Figure 6.17 shows the general location of all Constrained RTP projects located in
Washington County. The map includes all capital projects submitted, including projects
submitted by other jurisdictions and agencies.

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Figure 6.17 Urban Washington County: Map of all Constrained RTP projects

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6.3.3 Transit capital projects and planned service

Transit investments make up about 40 percent of the total cost of the Constrained RTP
project list. As shown in Table 6.5, transit capital projects in the 2045 Constrained
project list include several enhanced transit corridors and high-capacity transit projects.
See Table 6.5 for a listing of major transit capital projects in the RTP.

Table 6.5 Summary of Constrained RTP transit capital projects and planned service
Near-term Constrained Long-term Constrained (2031-
Transit Capital Projects
(2023-2030) 2045)
Number of transit capital projects 25 18
Number of transit capital projects
16 9
on a high injury corridor
Daily revenue hours (TriMet and
7,996 9,531
SMART only; excludes C-TRAN)
Service Expansion 38% increase from 2020 60% increase from 2020
New High Capacity Transit 4 HCT projects, including MAX Red 3 additional HCT projects (from
Connections Line Improvements (under 2030 Constrained): Interstate
construction), 82nd Avenue Transit Bridge Replacement Program HCT,
Project, Tualatin Valley Highway Southwest Corridor, and project
Transit Project and Montgomery development for the Steel Bridge
Park streetcar extension and Transit Bottleneck project, plus
additional station improvements additional station improvements
supporting operating reliability supporting operating reliability
Other service enhancements 8 Better Bus projects and, 4 additional Better Bus projects
additional transit supportive (from 2030 Constrained) and an
projects region-wide, new and ETC/Rose Lanes Transit
improved facilities to support Improvement Fund, plus additional
service expansion and transit supportive projects region-
electrification wide, new and improved facilities
to support service expansion and
electrification
Public and private shuttles More local jurisdictions operate More local jurisdictions operate
shuttles and some major shuttles and some major
employers and/or community- employers and/or community-
based organizations work with based organizations work with
transportation service providers to transportation service providers to
operate shuttles operate shuttles
Stations and station access More enhancements at and near More enhancements at and near
transit stops and stations, including transit stops and stations, including
sidewalk, bicycle, crossing, and sidewalk, bicycle crossing, and ADA
ADA improvements improvements
Safety More enhancements to safety and More enhancements to safety and
security for transit users security for transit users
Fares Reduced fares provided to youth, Reduced fares provided to youth,
older adults, people with older adults, people with
disabilities and low-income families disabilities and low-income families

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 Near-term Constrained Long-term Constrained (2031-
Transit Capital Projects
(2023-2030) 2045)
Estimated capital cost
$1.0 billion $1.6 billion
in YOE dollars

Figure 6.18 shows the general location of Constrained RTP transit capital projects and
planned service.

Figure 6.18 Greater Portland region: Map of 2030 Constrained RTP transit capital projects
and planned service

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Figure 6.19 Greater Portland region: Map of 2045 Constrained RTP transit capital projects
and planned service

Note: The 2045 Transit Capital Project Map includes all the transit capital that is assumed
in 2030 plus additional capital investments added through 2045

6.3.4 Interstate Bridge Replacement Program and Throughway projects

Maintenance and efficient operation of the existing throughway system is critical. Keeping
throughways in good repair and using information and technology to manage travel
demand and traffic flow help improve safety and boost efficiency of the existing system.
With limited funding, more effort is being made to maximize system operations prior to
building new capacity in the region. Building a connected roadway network will also
preserve the throughway system for longer-distance, freight and transit trips.

Adding lane miles to relieve congestion is an expensive approach and will not solve
congestion on its own. However, targeted widening of roads and throughways, along with
connectivity and system and demand management strategies, can help connect goods to
market and support travel across the region. Strategic throughway capacity seeks to
maintain regional mobility and enhance access to industrial areas and intermodal
facilities where goods move from one transportation mode to another.

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Throughway projects comprise about 7 percent of the total number of capital projects in
the Constrained RTP list of projects, and about 21 percent of capital spending in the plan.
The Interstate Bridge Replacement Project is the single largest project in the plan and
represents nearly 25 percent of capital spending in the plan. Table 6.6 lists some of the
major throughway capital projects in the 2030 and 2045 constrained lists.

Table 6.6 Summary of Constrained RTP throughway projects, including Interstate Bridge
Replacement Program
Throughway Projects and Interstate Near-term Constrained Long-term Constrained (2031-
Bridge Replacement Program (2023-2030) 2045)
Number of throughway projects or project
13 11
phases*
Number of throughway projects or project
7 1
phases with safety benefit
Number of throughway projects or project
5 4
phases on high injury corridor
Throughway capacity (including new
auxiliary lanes), change from 2020 base 18 new lane miles 35 new lane miles
network
Throughway Tolling Programs I-5 Interstate Bridge I-5 Interstate Bridge
Replacement pre-construction Replacement Program
tolling, I-205 Toll Program,
Regional Mobility Pricing
Project
New throughway capacity, (including new I-5/Rose Quarter, I- I-5 Interstate Bridge
auxiliary lanes) 205/Abernethy Bridge, I-205 Replacement Program, OR
widening and Toll Project, 212/224 Sunrise Project Phase
OR 224 2, I-5 Boone Bridge and seismic
improvement project, auxiliary
lanes and braided ramps on I-5
northbound and southbound
and on OR 217
Throughway Projects
Estimated capital cost in YOE dollars
$3.1 billion $2.1 billion
Interstate Bridge Replacement Program
Estimated capital cost in YOE dollars
- $6.0 billion

*Note: Does not include I-5 IBR Program. Some throughway projects reflect discrete phases of a throughway
project.

See Appendix A and Appendix M for more information about these projects.

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Figure 6.20 shows the general location of Constrained RTP throughway projects.

Figure 6.20 Greater Portland region: Map of Constrained RTP throughway projects and the
Interstate Bridge Replacement Program

6.3.5 Roads and bridges projects

Nearly 45 percent of all trips in the region made by car are less than three miles, and 15
percent are less than one mile, based on the 2011 Oregon Household Activity Survey.
When road networks lack multiple routes serving the same destinations, short trips must
use major travel corridors designed for freight and regional traffic, adding to congestion.

There are three key ways to make roads and bridges safe, reliable and connected for
people walking, driving, biking and taking transit:
1. Maintenance and efficient operation of the existing road system. Keeping the
road system in good repair and using information and technology to manage travel
demand and traffic flow help improve safety and boost efficiency of the existing

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 system. With limited funding, more effort is being made to maximize system
operations prior to building new capacity in the region. Seismic retrofit projects,
shown in Figure 6.22, are critical to reduce vulnerability of the transportation system
to earthquakes.
2. Street connectivity and complete streets. Building a well-connected network of
complete streets including new local and major street connections shortens trips,
improves overall network efficiency, improves access to community and regional
destinations, and helps preserve the capacity and function of highways in the region
for freight and longer trips. These connections include designs that support walking
and biking and, in some areas, provide critical freight access between industrial areas,
intermodal facilities and the interstate highway system.
3. Network expansion. Adding lane miles to relieve congestion is an expensive
approach and will not address growing congestion on its own. However, targeted
widening of roads and throughways, along with connectivity and system and demand
management strategies, can help connect goods to market and support travel in
growing areas and across the region.

As shown in Table 6.7, road and bridges projects comprise about 36 percent of the total
number of capital projects in the Constrained RTP list of projects. Road and bridge capital
projects include arterial street expansions, “complete street” reconstructions that are
complemented by new arterial connections, seismic retrofits and highway overcrossings
to provide mobility and access for all modes of travel.

Table 6.7 Summary of Constrained RTP roads and bridges projects

Near-term Constrained Long-term Constrained (2031-
Roads and bridges capital projects
(2023-2030) 2045)
Number of roads and bridges
118 160
capital projects
Number of roads and bridges
60 80
projects with a safety benefit
Number of roads and bridges
53 67
projects on a high injury corridor
Arterial roadway capacity 112 230
Examples of bridge and new major Earthquake Ready Burnside Bridge Farmington Road Multimodal
arterial capacity projects (Phases 2 and 3), 82nd Avenue Improvements, Century Boulevard
Corridor Improvements, Outer Improvements, Sunnyside Road
Powell Multimodal Project, 82nd Extension, seismic retrofitting of
Avenue/Airport Way grade bridges throughout region
separation, Basalt Creek Parkway,
172nd Avenue (Phase 2)
Estimated capital cost
$3.1 billion $4.4 billion
in YOE dollars

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Figure 6.21 Greater Portland region: Map of Constrained RTP roads and bridges projects

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Figure 6.22 Greater Portland region: Map of Constrained RTP Seismic Resilience Priorities

Shown in Figure 6.22, several major projects in the RTP are planned to improve the
region's readiness for major natural disasters, including earthquake-ready bridges across
the Willamette (Abernethy Bridge and Earthquake Ready Burnside Bridge) and Columbia
(Interstate Bridge Replacement Program) rivers, and improvements along Regional
Emergency Transportation Routes and Statewide Seismic Lifeline Routes. These
investments will help ensure that essential infrastructure will be here to serve us for
generations. Future work is needed to identify and address the vulnerability of critical
transportation infrastructure to other hazards, including extreme heat, flooding, and
landslides.

6.3.6 Freight access projects

The greater Portland region is the trade and transportation gateway for Oregon and
provides market access for many southwest Washington businesses. Our prosperity is
directly tied to the investments we make in our transportation system, including the

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region’s freight infrastructure. These investments make consumer goods readily available
to us; provide air, ship, rail and road systems that help our businesses efficiently reach
global and domestic marketplaces; and create family-wage jobs across the region.

Freight access projects in the Constrained RTP project list are focused on:
• Freight reliability and safety. Facilitate the safe, reliable and efficient movement of
goods by better utilizing existing road and freight rail infrastructure and capacity,
separating freight traffic from other modes to increase safety and minimize conflicts,
and strategically investing in the regional freight network to eliminate road and rail
bottlenecks that create serious freight congestion.
• Freight network connectivity. Provide shippers with the ability to transfer freight
seamlessly between different modes of transportation, as well as efficient access to
local freight clusters and delivery points and regional, domestic and global markets.
• Intermodal freight facilities and connectors. Invest in intermodal facilities and
freight intermodal connectors (e.g., reload facilities, marine ports, rail yards, freight
access roads, etc.) that reduce highway demand for freight.
• Smart technology. Make use of intelligent transportation systems and emerging
technologies to improve traffic flow along goods movement corridors.

As shown in Table 6.8, freight access projects comprise less than 2 percent of the total
number of capital projects in the Constrained RTP list of projects. Additionally, none of
the freight projects in the short-term constrained project list propose safety benefits.

Table 6.8 Summary of Constrained RTP freight access projects

Near-term Constrained Long-term Constrained (2031-
Freight access capital projects
(2023-2030) 2045)
Number of freight access projects 4 10
Number of freight access projects
0 5
with a safety benefit
Number of freight access projects
2 4
on a high injury corridor
Airport Way and 82nd Avenue Cully Blvd. Grade separation,
New major freight access capacity grade separation, Rivergate Blvd. Columbia Blvd Rail Bridge,
projects overcrossing, T6 modernization, Going/Greeley Interchange
Marine Drive Improvement Phase 2
Estimated capital cost
$74 million $307 million
in YOE dollars

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Figure 6.23 Greater Portland region: Map of Constrained RTP freight access projects

6.3.7 Active transportation projects

Active transportation investments have become a growing focus around the region. Active
transportation is considered non-motorized forms of transportation including walking
and biking. Making it safe and convenient to walk, ride a bicycle and get to public transit
benefits people and the environment in multiple ways. Active transportation is good for
business, household pocketbooks, clean air and water, public health and safe streets.

Approximately 45 percent of all trips made by car in the region are less than three miles
and 15 percent are less than one mile, according to the 2011 Oregon Household Activity
Survey. With complete walking and biking routes supported by education and incentives,
many of the short trips made by car today could be replaced by walking and biking.

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RTP active transportation projects focus on four key ways to make biking and walking
safe and convenient for people of all ages and abilities in our region:
1. Fill the gaps. Completing missing sidewalks, pedestrian crossings, bikeways and
multi-use paths creates complete streets and better connectivity; removes barriers;
adds routes across highways, railroads and waterways; makes high injury locations
safer; and shortens trip distances and travel time. Access to transit
2. Design for safety. Designing bikeways and walking routes with greater separation
and buffers from traffic increases safety and reduces the risk of traffic deaths. Making
it safer for people walking and biking makes travel safer for all modes.
3. Meet the demand. Upgrading high demand bikeways and walking routes and
prioritizing active travel in high demand areas provides reliable travel options in
congested corridors, reduces the need to drive and increases livability.
4. Safe Routes to School. Providing programs and safe walking and biking routes to
schools is proven to reduce driving trips and create healthy options for kids.

As shown in Table 6.9, active transportation investments comprise about 40 percent of

the total number of capital projects in the Constrained RTP list of projects.

Table 6.9 Summary of Constrained RTP active transportation projects

Active transportation capital Near-term Constrained Long-term Constrained (2031-
projects (2023-2030) 2045)
Number of active transportation
124 178
projects
Number of active transportation
113 157
projects with a safety benefit
Number of active transportation
50 65
projects on a high injury corridor
Active transportation miles added
22 sidewalk miles added 38 sidewalk miles added
along planned regional networks
30 bikeway miles added 36 bikeway miles added
by sidewalk, bikeway and trail
24 trail miles added 56 trail miles added
projects*
Examples of active transportation Aloha-Reedville pedestrian Lake Oswego to Portland Trail,
projects Improvements, Council Creek Reedway bike/pedestrian
Regional Trail, Division-Midway overcrossing, Washington County
Connected Centers project, pedestrian arterial crossings, East-
Westside Trail US 26 bridge Buttes Loop Trail
crossing, Milwaukie Monroe Street
Neighborhood Greenway
Estimated capital cost
$955 million $2.1 billion
in YOE dollars
* This does not include miles of sidewalk and bikeways added to regional networks by projects in other
investment categories.

Figure 6.24 Greater Portland region: Map of Constrained RTP active transportation projects

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6.3.8 Transportation system management and operations projects

Using technology to actively manage the greater Portland region’s transportation system
means using intelligent transportation systems and services to reduce vehicle idling
associated with delay and help improve the speed and reliability of transit. Nearly half of
all congestion is caused by incidents and other factors that can be addressed using these
strategies.

Local, regional and state agencies work together to implement transportation system
technologies. Agreements between agencies guide sharing of data and technology,
operating procedures for managing traffic, and the ongoing maintenance and
enhancement of technology, data collection and monitoring systems.

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RTP transportation system management and operations projects are focused on:
• Arterial corridor management. Advanced technology at each intersection actively
manages traffic flow. This includes coordinated or adaptive signal timing; advanced
signal operations such as cameras, flashing yellow arrows, bike signals and pedestrian
count down signs; and communication to a local traffic operations center and the
centralized traffic signal system.
• Freeway corridor management. Advanced technology manages access to the
freeways, detects traffic levels and weather conditions, provides information with
message signs and variable speed limit signs, and deploys incident response patrols
that quickly clear breakdowns, crashes and debris. These tools connect to a regional
traffic operations center.
• Traveler information. Variable message and speed limit signs and 511 internet and
phone services provide travelers with up-to-date information regarding traffic and
weather conditions, incidents, travel times, alternate routes, construction and special
events.

Table 6.10 Summary of Constrained RTP transportation system management and operations
projects
Information and Technology Near-term Constrained Long-term Constrained (2031-
Projects and Programs (2023-2030) 2045)
Transportation System
Management and Operations 10 24
Projects
Provide for real-time and Information on current travel Current Conditions data is used by
forecasted traveler information conditions and alerts are available operators to forecast changing
to the public and third party travel conditions
developers
Multimodal integrated corridor Agencies integrate operations Agencies integrate operations
management strategies in a few of the region’s strategies in some of the region’s
major travel corridors major travel corridors
Advanced traffic signal operations Traffic signals are interconnected Traffic signals are interconnected
in some industrial areas and major in some industrial areas and major
travel corridors travel corridors
Transit signal priority Some frequent bus routes Most frequent bus routes
Freeway ramp meters All urban interchanges All urban interchanges

Freeway variable speed signs Some high incident locations Most freeways

Incident response vehicles Incident response vehicles monitor Incident response vehicles monitor
some high incident locations all area freeways and major
arterials adjacent to freeways
Estimated capital cost
$62 million $213 million
in YOE dollars

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Figure 6.25 Greater Portland region: Map of Constrained RTP information and technology
priorities

6.3.9 Transportation demand management projects

Public awareness, education and travel options support tools are cost-effective ways to
improve the efficiency of the existing transportation system through increased use of
travel options such as walking, biking, carsharing, carpooling and taking transit. Local,
regional and state agencies work together with businesses and non-profit organizations
to implement programs in coordination with other capital investments. Metro
coordinates partners’ efforts, sets strategic direction, evaluates outcomes and manages
grant funding.

RTP Transportation demand management (TDM) projects are focused on:

• Public awareness strategies Events and other outreach strategies provide
information about and encourage the public’s use of travel options.

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• Commuter programs. Employer-based commuter outreach efforts include: financial
incentives, such as transit pass programs and offering cash instead of parking
subsidies; facilities and services, such as carpooling programs, bicycle parking,
emergency rides home and work-place competitions; and flexible scheduling such as
working from home or compressed work weeks.
• Individualized marketing. Focused outreach encourages individuals, families or
employees interested in making changes in their travel choices to participate in a
program. A combination of information and incentives is tailored to each person’s or
family’s specific travel needs. This outreach can be part of a comprehensive commuter
program.
• Travel options support tools Reduce barriers to travel options and support
continued use with tools, such as online rideshare matching, trip planning tools,
wayfinding signage, bike racks and carsharing.

As shown in Table 6.11, Transportation demand management (TDM) projects comprise

less than 2 percent of the total number of capital projects in the Constrained RTP list of
projects.

Table 6.11 Summary of Constrained RTP transportation demand management projects

Information/TDM Projects and Near-term Constrained Long-term Constrained (2031-
Programs (2023-2030) 2045)
TDM projects 6 7
Individualized marketing No forecast data is available; No forecast data is available
participation Current program reaches about 3%
of households
Commuter program participation No forecast data is available; No forecast data is available
Oregon Employee Commute
Options Rule requires work sites
with more than 100 employees to
have workplace programs
Public awareness marketing Existing ongoing and short-term Additional resources promote new
campaign campaigns increase awareness of travel tools, regional efforts and
Get There Oregon safety education
Provisions of travel options support 2020 program funding levels allow Additional resources allow for
tools for completion of several new public-private partnerships to
wayfinding signage and bike rack create new online, print and on-
projects street travel tools
Estimated capital cost
$102 million $195 million
in YOE dollars

6.3.10 Other projects and programs to leverage capital investments

The RTP Constrained investment strategy includes regional planning activities and
corridor investment area refinement and planning activities ($71 million).

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6.3.11 Transportation equity projects

The RTP reflects a regional commitment to plan and invest in the region’s transportation
system to reduce transportation-related disparities and barriers faced by communities of
color and other marginalized communities, regardless of race, language proficiency,
income, age or ability, while maintaining affordability and preventing displacement is
necessary.

Shown in Figure 6.26, out of the 771 projects in the Constrained RTP investment strategy,
450 capital projects are within an Equity Focus Area (58 percent). The Constrained RTP
investment strategy shows the combined investment of transit capital projects and active
transportation projects in equity focus areas reaches over $1.5 billion by 2030 and totals
over $4.0 billion by 2045. These comprise about $3.9 billion in 2030 and $6.5 billion by
2045. These types of investments are projects that underserved people have identified as
a priority through regional community engagement. Refer to Chapter 7 for information on
how the investment strategies of the RTP impact marginalized communities in the greater
Portland region.

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Figure 6.26 Greater Portland region: Map of Constrained RTP Equity Priority Projects

Figure 6.25 includes projects outside EFAs that have equity benefits as a primary project outcome.

6.3.12 Safety projects and safety benefit projects

Eliminating traffic related deaths and life-changing injuries and increasing transportation
safety is a priority of the RTP. To address safety and reduce serious crashes, the RTP
project list identifies projects that provide an overall safety benefit, as well as projects
that have the primary purpose of reducing fatal and severe injury crashes, or minor/non-
injury crashes at a documented high injury or high-risk location. These projects are
shown in Figure 6.27.

Safety projects and safety benefit projects are targeted towards the Regional High Injury
Corridors and Intersections and in race and income marginalized communities (equity
focus areas).

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As shown in Table 6.12, of the 771 capital projects on the Constrained list:
• Safety Projects. Across the short-term and long-term constrained project lists, 451
projects are identified as safety benefit projects. Those projects identify reducing fatal
and severe injury crashes or reducing minor/non-injury crashes as the primary
purpose of the project. Nearly 50 percent of these safety benefit projects are located
on a high injury corridor or intersection.
• Programs that impact safety. In addition to capital projects, the regional Safe Routes
to School, Transit Oriented Development and Transportation System Management and
Operations programs provide safety benefits.

Table 6.12 Summary of Constrained RTP safety benefit projects

Information and Technology Projects and Near-term Constrained Long-term Constrained (2031-
Programs (2023-2030) 2045)
Projects that help reduce serious traffic
190 261
crashes or address other safety issues
Number of safety benefit projects on a
132 164
High Injury Corridor*
Number of safety benefit projects in
125 173
Equity Focus Areas*
Estimated capital cost
$6.0 billion $11.8 billion
in YOE dollars
*Does not include projects that are programmatic or are not geographically specific.

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Figure 6.27 Greater Portland region: Map of Constrained RTP Priorities with Safety Benefit

6.3.13 Climate pollution reduction priorities

The RTP reflects a regional commitment to meet state mandated greenhouse gas
emissions reduction targets that ensure the region helps Oregon reach ambitious goals to
cut transportation emissions. The capital projects identified in Figure 6.28 implement
high- or medium-impact climate pollution reduction adopted in the region’s Climate
Smart Strategy, including improving transit and active transportation connections to
destinations and investing in transportation system management and operations (TSMO)
and transportation demand management (TDM) programs described earlier. The 2023
RTP is first to include roadway pricing, a state-led action identified in the Oregon
Statewide Transportation Strategy for reducing greenhouse gas emissions. The pricing
projects in the RTP aim to mange demand and help finance new transportation projects.

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Figure 6.28 Greater Portland region: Map of Constrained RTP Climate Pollution Reduction
Priorities

6.3.14 Mobility priorities

The RTP aims to provide people and businesses with affordable, convenient, sustainable,
and safe connections to destinations. This includes completing gaps in regional walking,
biking, transit, motor vehicle and TSMO networks and project designs that include TSMO
elements or ADA- pedestrian-, bicycle-, or transit-supportive design elements. Projects
that complete regional network gaps described earlier and include priority multimodal
design elements are shown in Figure 6.29.

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Figure 6.29 Greater Portland region: Map of Constrained RTP priorities that complete
network gaps and include priority multimodal design elements

6.3.15 Economic development priorities

The RTP supports the economy by connecting workers to jobs, connecting employers to
the talent that they need and moving goods around the region. Projects that are located in
areas planned for future growth, including the region’s 2040 centers, station
communities, industrial areas, employment areas and urban growth boundary expansion
areas and that have higher than average job activity are shown in Figure 6.30.

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Figure 6.30 Greater Portland region: Map of Constrained Priorities that Support Economic
Development

6.3.16 Transit operations and maintenance costs

Table 6.13 Summary of Constrained RTP transit operations and maintenance projects
Transit operations and (2023-2030) (2031-2045)
maintenance Constrained Constrained
Examples of operating services SMART Service to Clackamas Town New bus service Columbia to
Center and Oregon City Clackamas
Examples of maintenance projects Preventative maintenance for fleet Preventative maintenance for fleet
and vehicles, bus replacements, and vehicles, bus replacements,
etc. to keep system in good repair etc. to keep system in good repair
Estimated cost*
$7.1 billion $20.4 billion
in YOE dollars
Note: See Appendix A for the list of programmatic buckets in the Constrained RTP project list.
*Operations and maintenance costs are pending further review and subject to further refinement.

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6.3.17 Throughway, roads and bridges operations and maintenance costs

Table 6.14 Summary of Constrained RTP throughway, roads and bridges operations and
maintenance projects
Throughway, roads and bridges (2023-2030) (2031-2045)
maintenance Constrained Constrained
Level of maintenance Some maintenance backlogs grow Adequately meet maintenance and
preservation needs
Types of maintenance projects Bridge and road pavement Bridge and road pavement
resurfacing, preventative resurfacing, preventative
maintenance, preservation and maintenance, preservation and
rehabilitation that do not add rehabilitation that do not add
motor vehicle capacity motor vehicle capacity
Estimated cost*
$4.0 billion $11.5 billion
in YOE dollars
Note: See Appendix A for the list of programmatic buckets in the Constrained RTP project list.
*Operations and maintenance costs are pending further review and subject to further refinement.

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6.4 STRATEGIC PROJECT LIST
The strategic list of projects reflects additional policy-driven needs and project priorities
that exceed the region’s projected funding. The 2045 Strategic costs shown in Table 6.15
include the Constrained RTP project costs plus estimated costs for additional projects that
could be implemented with additional resources. Estimated transit operations and
maintenance costs for the strategic project list are still under development.

Table 6.15 Estimated costs for RTP Constrained and Strategic Project Lists
(2023-2030) (2031-2045) (2031-2045)
RTP Capital Costs
Constrained Constrained Strategic
Transit capital $1.0 billion $1.6 billion $11.8 billion
Throughways $3.2 billion $2.1 billion $2.3 billion
Roads and bridges $3.1 billion $4.4 billion $4.1 billion
Freight access $74 million $307 million $155 million
Walking + Biking $955 million $2.1 billion $3.2 billion
Information and Technology $165 million $408 million $132 million
(2023-2030) (2031-2045) (2031-2045)
RTP Operations and Maintenance Costs*
Constrained Constrained Strategic
Under
Transit operations and maintenance $7.1 billion $20.4 billion
development
Roads and throughways operations and
$4 billion $11.5 billion $4.1 billion
maintenance
Total estimated cost Under
$19.5 billion $48.9 billion
in YOE dollars development
Costs have been rounded and are in year-of-expenditure dollars.
*Operations and maintenance costs are pending further review and subject to refinement.

See Appendix A for the list of projects included in the Constrained RTP Project List. See
Appendix B for the list of projects included in the Strategic RTP project list.

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Chapter 7
System Analysis
2023 Regional Transportation Plan
July 10, 2023 PUBLIC REVIEW DRAFT
TABLE OF CONTENTS
Introduction ........................................................................................................................................... 7-1
Purpose .............................................................................................................................................. 7-1
Chapter organization ......................................................................................................................... 7-1
Our Growing region ............................................................................................................................... 7-2
Mobility .................................................................................................................................................. 7-5
Mode share ........................................................................................................................................ 7-6
Access to jobs ..................................................................................................................................... 7-6
System completeness ........................................................................................................................ 7-7
Throughway reliability ....................................................................................................................... 7-8
Transit investments and performance............................................................................................. 7-11
Safety ................................................................................................................................................ 7-16
Equity ................................................................................................................................................ 7-18
Economy............................................................................................................................................... 7-20
Analyses under development .......................................................................................................... 7-21
Climate and environment .................................................................................................................... 7-22
Pricing impacts the region’s progress toward climate goals ........................................................... 7-23
Pricing projects in the 2023 RTP and their impacts ......................................................................... 7-26
TABLE OF FIGURES
Figure 7.1: Forecasted regional population, employment, and household growth (Metro Regional
Forecast Distribution) ................................................................................................................................ 7-3
Figure 7.2: 2020 Base Year Throughway Travel Speed Reliability Performance (Metro travel model) .... 7-9
Figure 7.3: 2030 Throughway Travel Speed Reliability Performance (Metro travel model) ................... 7-10
Figure 7.4: 2045 Throughway Travel Speed Reliability Performance (Metro travel model) ................... 7-11
Figure 7.5: Transit service and ridership, indexed to 2003 levels, 2003-22 (source: TriMet ridership
data) ......................................................................................................................................................... 7-13
Figure 7.6: Daily VMT per capita by scenario vs. regional climate target (source: Metro/RSG VisionEval
analysis).................................................................................................................................................... 7-25
Figure 7.7: Throughways that are tolled under the 2023 RTP (Source: ODOT) ....................................... 7-27
TABLE OF TABLES
Table 7.1: Forecasted changes in regional growth and the travel network, 2020-2045 (Metro Regional
Forecast Distribution) ................................................................................................................................ 7-2
Table 7.2: Summary of draft system analysis results: mobility ................................................................. 7-5
Table 7.3: 2023 RTP transit performance results .................................................................................... 7-14
Table 7.4: Summary of draft system analysis results: Safety................................................................... 7-16
Table 7.5: Summary of draft system analysis results: equity .................................................................. 7-18
Table 7.6: Summary of draft system analysis results: economy .............................................................. 7-20
Table 7.7: Summary of draft system analysis results: climate and environment .................................... 7-22
Table 7.8: Climate scenarios and associated assumptions ...................................................................... 7-24
Table 7.9: Key elements of the three 2023 RTP projects that include tolling ......................................... 7-28
INTRODUCTION
Purpose

This chapter presents the results of the RTP system analysis conducted on the draft financially
constrained project list in Chapter 6. The analysis assesses the RTP’s impact on the five RTP goal
areas: mobility, safety, equity, climate and economy. The RTP uses several different performance
measures to capture the region’s progress in each of these goal areas and compares the results to
targets described in Chapter 2. The targets that are established through the state and federal
rules that govern the RTP or that are included in policies adopted by the Joint Policy Advisory
Committee on Transportation (JPACT) and the Metro Council. The system analysis uses Metro’s
travel model and other analytical tools. The analysis accounts not only for the projects and
policies in the RTP, but also for factors such as projected population and job growth.

Chapter organization

This chapter consists of five sections, each of which summarizes the RTP’s performance with
respect to the five RTP goals: mobility, safety, equity, economy, and climate. These sections all
follow the same structure. Each begins with a table that summarizes the results for performance
measures related to the goal in question. For each measure, the tables include a sentence
describing the measure followed by rows with numbers showing the associated target and data
on results and targets for the years 2020, 2030, and 2045. The tables use blue text to indicate
where the RTP meets targets, orange text to indicate where it doesn’t, and purple text to indicate
mixed results. The text below the tables highlights key findings in bold, provides additional
context to help interpret results, and discusses any performance measures or analyses that are
still pending.

Metro sometimes cannot estimate results for certain years, and targets sometimes do not apply to
all years for which the tables below show data. Blank cells in a table mean that a result or target is
not available for a particular year for the measure in question.

The draft system analysis results are described alongside key takeaways from the high-level
project list assessment completed as part of the evaluation process The high-level project list
assessment takes a simple, yes-or-no approach to reviewing whether individual projects in the
draft RTP project list have certain features that support RTP goals and considers the share of the
RTP spending devoted to different types of projects. The high-level project list assessment and
system analysis in combination with public feedback received will inform policymakers and
regional technical and policy advisory committees as they work together to finalize the draft RTP
and projects lists for adoption in Fall 2023.

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OUR GROWING REGION
The system analysis focuses on how the RTP advances the region toward meeting its
transportation goals. That said, other factors like regional population and employment growth
and the historical development of the region’s transportation system, also influence progress
toward these goals. Table 7.1 summarizes how the region and its travel network are growing and
changing.
Table 7.1: Forecasted changes in regional growth and the travel network, 2020-2045
2020 2030 2045
Population and employment
Total population 1,740,943 1,933,475 2,242,128
% change in population vs. 2020 11% 29%
Total households 693,123 794,613 950,634
% change in households vs. 2020 15% 37%
Total employment 985,260 1,050,958 1,210,997
% change in employment vs. 2020 7% 23%
Travel network
Total road miles 3,723 3,754 3,789
% change in road miles vs. 2020 1% 2%
Total arterial miles 3,491 3,525 3,556
% change in arterial miles vs. 2020 1% 2%
Total lane miles 5,510 5,640 5,776
% change in lane miles vs. 2020 2% 5%
Total throughway lane miles 627 645 663
% change in throughway lane miles vs. 2020 3% 6%
Total transit network miles 1,240 1,275 1,294
% change in transit network miles vs. 2020 3% 4%
Total regional pedestrian network miles 597 646 724
% change in regional pedestrian network miles vs. 2020 8% 21%
Total regional bicycle network miles 626 691 756
% change in regional bicycle network miles vs. 2020 10% 21%
Total regional trail network miles 247 273 330
% change in regional trail network miles vs. 2020 11% 34%

Figure 7.1 visualizes forecasted population, household, and employment growth.

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Figure 7.1: Forecasted regional population, employment, and household growth (Metro
Regional Forecast Distribution)

This information – which comes from the regional growth distribution adopted by the Metro
Council for the RTP and other local and regional planning efforts, and from the project
information that agency partners submit to the RTP – forms part of the background assumptions
that Metro uses to analyze the impact of the RTP on regional goals. It highlights how the region is
growing and changing and provides additional context for interpreting some of the results
described in this section.

The region is forecasted to grow significantly between now and 2045. During that time, more
than one-half million people are expected to move to the region, growing its population by 29
percent, while employment grows by 23 percent. Though the COVID-19 pandemic slowed
population and job growth in the Portland region and in many other major metro areas, this
growth is expected to pick up again in the future. Population and employment growth has a strong

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influence on congestion, and therefore on related performance measures such as access to jobs
and corridor travel times. The region’s goals are to improve access to jobs and reduce travel times
on key corridors regardless of how much growth occurs, but all other things being equal these
goals are harder to achieve when the region is growing more rapidly. Comparing the change in
these performance measures to overall population and employment growth can help to
distinguish whether growth or other issues are the driving factors behind the changes shown in
the system analysis.

The motor vehicle network is much more extensive than other networks. The system
analysis focuses on measuring system completion for different networks and in different
communities where RTP policies prioritize investment. This is an important way of understanding
the RTP’s progress toward the region’s vision for the transportation network, but those visions
always build on the existing network, which was developed over several decades during which
transportation agencies primarily focused on moving vehicles. Table 7.1 summarizes the current
extent of different networks and the planned growth of those networks under the RTP. It
illustrates why so many of the goals described above focus on completing the transit and active
transportation networks – as of 2020, all those networks are less than a third of the size of the
region’s road network, and that is still the case in 2045 even with the RTP prioritizing transit and
active transportation investments.

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MOBILITY
Table 7.2: Summary of draft system analysis results: mobility
Base Base
year year 2030 2030 2045 2045
Measure value target result target result target
The RTP aims to triple transit, bike, and pedestrian mode shares relative to the base year.
Transit mode share 4.1% 4.5% 5.4% 12.2%
Pedestrian mode share 7.5% 7.5% 7.8% 22.6%
Bicycle mode share 3.7% 3.8% 3.9% 11.1%
The RTP prioritizes improving access to jobs via driving and transit relative to the base year. 1

% of regional jobs accessible by transit 7% 8% 7% 8% 7%

% of regional jobs accessible by driving 41% 42% 41% 37% 41%
The RTP aims to provide the same level of access to jobs via transit (or greater) as via driving so that transit
offers the same efficiency and convenience as driving.
% of regional jobs accessible by transit 7% 41% 8% 42% 8% 37%
The RTP aims to complete the motor vehicle, transit, bicycle, trail and pedestrian networks by 2035.
% of the motor vehicle network that is 98% 100% 99% 100% 99% 100%
complete
% of the transit network that is complete 70% 100% 72% 100% 73% 100%
% of the pedestrian network that is complete 57% 100% 62% 100% 69% 100%
% of the bicycle network that is complete 55% 100% 60% 100% 66% 100%
% of the trail network that is complete 43% 100% 48% 100% 58% 100%
The RTP prioritizes completing the bicycle and pedestrian system near transit (relative to the regional
average) in order to provide safe and convenient access to stations and stops.
% of the pedestrian network near transit that is 63% 57% 68% 62% 74% 69%
complete
% of the bicycle network near transit that is 60% 55% 66% 60% 71% 66%
complete
The RTP aims to have no more than four hours in a day when average travel speeds fall below 35 miles per
hour on the region’s controlled-access throughways and below 20 miles per hour on other designated
throughways with traffic signals so that the region’s throughways are reliable.
% of controlled-access throughway miles that 15% 0% 10% 0% 16% 0%
fall below 35 MPH for more than 4 hours per
day
% of other designated throughway miles with 0% 0% 0% 0% 0% 0%
traffic signals that fall below 20 MPH travel
speeds for more than 4 hours per day

1
Access to jobs analysis involves measuring the average number of jobs that are accessible via 45 minutes via
transit and 30 minutes via driving during peak travel hours across all of the travel analysis zones used in Metro’s
travel model. See the equity section below for more detail on the type of jobs and destinations that are captured
in this analysis.

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 Base Base
year year 2030 2030 2045 2045
Measure value target result target result target
The RTP aims to increase the share of households and jobs that are located within walking distance of frequent
transit service 2 relative to the base year.
% of households located within walking 54% 56% 54% 54% 54%
distance of a frequent transit station
% of jobs located within walking distance of a 64% 67% 64% 67% 64%
frequent transit station
The RTP seeks to improve mobility by filling gaps in the transportation network and by designing the
transportation system for multimodal travel.
% of the capital RTP spending invested in 30% 29%
projects that fill gaps in the transportation
network
% of the capital RTP spending invested in 95% 91%
projects that include multimodal design
elements
% of the capital RTP spending invested in 29% 28%
projects that fill gaps and include multimodal
design elements

Since the RTP is a transportation plan, it has many different performance measures related to
mobility, including three new measures to support the regional mobility policy – system
completeness, throughway reliability, and vehicle miles traveled (discussed in the climate
section). For some of these measures the RTP meets performance targets, whereas for other
measures it falls short.

Mode share

The RTP increases transit use and multimodal travel, but does not meet the region’s targets
to triple transit, walking and bicycling mode share. Metro’s travel models forecast that the
investments in the RTP help to increase the share of trips that people make using these modes,
but only by small amounts. Transit mode share is forecast to grow by 1.3% between 2020 and
2045 – a relative increase of over 30% – which is significant, but still far short of adopted targets.
Walking and bicycling mode shares increase by much smaller amounts than transit mode shares.

Access to jobs

The RTP generally improves access to jobs. The percentage of the region’s jobs that are
accessible by transit increases between 2020 and 2045. Access to jobs by transit also increases
between 2020 and 2030, but then it declines between 2030 and 2045. Generally, the investments

2
“Frequent transit service” refers to service with headways of 15 minutes or less. Metro uses different walking
distances to analyze proximity to different types of transit service, consistent with research that shows people
are willing to walk longer to reach higher-quality service. This analysis defines “walking distance” as ¼ mile for
bus, 1/3-mile for streetcar, and ½ mile for rail.

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in the RTP help to keep both roads and transit vehicles moving more efficiently, which increases
access to jobs. Increasing congestion near some job centers appears to be contributing to
declining motor vehicle access to jobs in the later years of the plan.

Driving currently offers much better access to jobs than transit does, and the RTP does not
change this even though it improves access to jobs via transit. The RTP improves access to
jobs via transit more than it does access to jobs via driving. However, driving currently offers
access to five to ten times as many destination as transit does depending on when you are
traveling, where you want to go, and where within the region you are starting from, and the RTP
does not change the fact that driving offers much better access than transit does. In order to give
people the ability to choose from a variety of seamless and well-connected travel options and
services that easily get them where they need to go, transit needs to offer the same level of access
as driving does. Providing equal access via transit and driving is an aspirational goal for the
greater Portland region – and almost any other U.S. city – due to a decades-long history of auto-
oriented development, but closing the gap between transit and driving access has far-reaching
benefits for the region.

System completeness

None of the region’s transportation networks are complete, but the motor vehicle network
is much closer than others. A goal of the RTP mobility policy is to complete all the planned
infrastructure networks included in the plan – motor vehicle, transit, pedestrian, bicycle and trail.
None of these networks are complete, but the motor vehicle network, which will be 99% complete
in 2045 when other networks are only 58 to 73% complete, is much closer than the other
networks. Completing all networks in the RTP is important to meeting goals, but the fact that the
motor vehicle network is so much more complete than others contributes to the challenge of
providing a variety of seamless and connected travel choices. Additional work is being completed
by Metro staff to develop approaches for defining system completeness for transportation system
management and operations (TSMO) network and transportation demand management
programs.

The region has historically prioritized completing pedestrian and bicycle facilities near
transit, and the RTP upholds this priority. The pedestrian and bicycle networks are currently
more complete near transit than in other locations in the region, and though the RTP does slightly
less to complete these networks near transit than in other parts of the region, they will still be
more complete in 2045.

The RTP generally improves access to frequent transit, if only slightly. In order for the transit
system to be useful, stops and stations have to be located near common origins and destinations,
particularly for the frequent service that gets riders where they need to go efficiently. The RTP
slightly increases the share of jobs that are near transit, and in the short term, the share of
households that are located near transit as well. However, the share of households that are
projected to be within walking distance of transit in 2045 is similar to the base year share. Though
the RTP expands the transit system, this planned growth may not be keeping pace with new
development.

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Almost all of the RTP projects include design elements that support travel by transit, foot or bike.
However, slightly under a third of the RTP spending goes toward projects that close gaps in
regional transportation networks. Increasing this share could help the RTP better complete the
transportation system.

Throughway reliability

The RTP meets the throughway reliability thresholds for throughways with traffic signals,
but not for some limited-access throughways. The plan is expected to maintain current
levels of reliability. The throughway performance measure and thresholds aim to identify future
transportation needs on region’s throughways using travel speed as a proxy for reliability. The
draft policy proposes a minimum throughway performance threshold of no more than four hours
per weekday with travel speeds below 35 miles per hour on controlled access freeways (e.g., I-5, I-
84, I-205, I-405, US 26 and OR 217) or 20 miles per hour on non-freeways with traffic signals (e.g.,
OR 99E, US 30, OR 212). If average speeds fall below the relevant speed threshold for more than a
total of four hours in a day, it indicates the system is failing at that location and a transportation
need exists.

All signalized throughways in the region are projected to meet this threshold, but a portion of the
limited-access throughways are not. In spite of the fact that some throughways do not meet
regional mobility threshold, the RTP generally maintains current levels of reliability through
2045, with some notable exceptions along OR 217, US 26, and I-84. Reliability is generally
projected to improve between now and 2030 as the region invests in projects that improve
reliability, including strategic projects to address bottlenecks, pricing strategies, and multimodal
investments such as high capacity transit and system management strategies that help to slow
growth in travel on the region’s throughway system. Reliability then declines back to 2020 levels
in 2045 due to continued population and employment growth. Figure 7.2, Figure 7.3, and Figure
7.4 show how throughway reliability changes over time under the RTP and locations that do not
meet the throughway reliability thresholds.

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Figure 7.2: 2020 Base Year Throughway Travel Speed Reliability Performance (Metro travel
model)

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Figure 7.3: 2030 Throughway Travel Speed Reliability Performance (Metro travel model)

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Figure 7.4: 2045 Throughway Travel Speed Reliability Performance (Metro travel model)

The investments in the RTP help to preserve future throughway capacity for longer-distance
movement of goods, services and people, and enhance access to the region’s industrial areas,
ports and intermodal facilities. However, more evaluation of future pricing strategies is needed to
better understand their effect on the region’s parallel arterials, low-income households and land
use patterns to ensure any unintended consequences are identified and addressed in design and
implementation. Corridor-level evaluation is also needed upon completion of the 2023 RTP
update to address deficiencies and specific investment needs identified in this analysis. See
Appendix I for more details on the throughway reliability analysis and results for individual
throughway segments.

Transit investments and performance

The RTP relies on a thriving, affordable and efficient transit system to achieve regional mobility,
equity and climate goals. Currently, the transit system is facing significant challenges, including
recovering from severe service and ridership declines due to the COVID-19 pandemic, ongoing
challenges hiring drivers, concerns about riders’ and drivers’ safety, and inflationary increases in
the cost of new infrastructure and service. The RTP makes significant investments in transit,

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including $2.8 billion in transit capital projects and $28 billion for transit service and operations.
These investments still deliver significant benefits for the region, even when accounting for the
challenges that transit has faced recently.

Chapter 3 contains maps showing how the transit system evolves over the course of the RTP as
new projects are delivered. These projects include major near-term regional investments such as
new high-capacity transit lines along TV Highway, 82nd Avenue, and the Montgomery Park
streetcar line, Better Red and Division FX frequent bus service, and Better Bus improvements
throughout the region that help buses move more quickly through traffic, all of which are
anticipated to be built by 2030. The 2045 network includes light rail on the I-5 Interstate Bridge
and along Southwest Corridor; concentrated Better Bus investments in key corridors including
Lombard, Cesar Chavez and SW 185th; and additional high-capacity transit projects.

The RTP accounts for several recent changes to the transit system when evaluating the impact of
these projects on regional goals:

The pandemic changed riders’ behavior, and transit agencies are adjusting service
accordingly. The region’s transit system has historically been designed to connect workers to job
centers, particularly during peak commuting hours, but commute trips fell dramatically during the
pandemic, and given the persistence of working from home it seems likely that a lower share of
workers will be using transit for their commutes going forward. TriMet’s Forward Together
service concept 3 increases service in equity focus areas and focuses more on providing good
service throughout the day and less on providing frequent transit during peak hours compared to
previous plans. These changes are included in the RTP transit network along with the projects
listed above.

The cost of building and operating transit has gone up. Inflation has increased the cost of most
of the investments included in the RTP, which means that the region’s transportation dollars do
not stretch as far. This is particularly true for transit because the RTP is required to account for
not only the cost of building new transit facilities, but also the cost of operating new transit
projects. This increases the cost of building out the regional transit network, and delays progress
toward completing that network.

Recent transit investments have been less effective at drawing new riders. Figure 7.5 shows
how TriMet service and ridership 4 has changed since 2003. Service and ridership are both
indexed to 2003 levels, which means that the graph focuses on how those variables have changed
over the past two decades.

3
[Link]
4
TriMet annual performance report, 2003-22, [Link] This data does not
include all transit services in the region, but since TriMet serves over 90 percent of transit rides in the region its
data typically reflects regional trends, and the way that TriMet reports this data makes it easy to use this data to
track those trends over time.

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Figure 7.5: Transit service and ridership, indexed to 2003 levels, 2003-22 (source: TriMet
ridership data)

The past two decades of transit performance can be broken down into four phases:
• From 2003 to 2009, ridership grew faster than service (14% vs. 9%). New investments in
transit were relatively effective at drawing new riders during this period.
• From 2010 to 2013, service declined, but ridership remained at high levels.
• From 2014 to 2019, service increased significantly while ridership declined slightly. This
suggests that new transit service was not very effective at drawing new riders. 5

5
Transit agencies in cities across the U.S. observed similar trends during this period, during which total U.S. non-
rail transit trips fell by almost nine percent and rail trips fell by roughly two percent. (See Federal Transit
Administration, National Transit Database: 2019 National Transit Summaries and Trends,
[Link] Analyses pointed to several
potential explanations for this decline, including an increased preference among travelers for (and, as the
economy strengthened, ability to afford) private vehicles, declining gas prices, competition from transportation
network companies and other emerging modes, and declining housing affordability, which may have led many
lower-income people who are more likely to rely on transit to move to communities where transit was not
accessible. (See TransitCenter, Who’s on Board 2019: How to Win Back America’s Transit Riders,
[Link]

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• From 2020 to 2022, transit ridership and service both suffered severe declines and then
recovered slowly.

During every RTP update, Metro calibrates its travel model that is used in the RTP system analysis
to existing data to capture changing dynamics in how people travel. The 2023 RTP update uses a
travel model that is calibrated to data from 2014-19, whereas the previous RTP update used data
from 2013 and before. This leads the 2023 RTP to make more modest assumptions about
how many riders will use new transit service.

In spite of the challenges discussed above, transit service, ridership and mode share still increase
significantly under the 2023 RTP, as shown in Table 7.3.
Table 7.3: 2023 RTP transit performance results
2030 2045
Measure 2020 Constrained Constrained
Total daily transit revenue hours 7,390 8,856 10,192
Increase in total daily revenue hours 0% 20% 38%
Total daily transit trips 255,159 313,925 440,270
Increase in total daily trips N/A 23% 73%
Transit mode share (all trips) 4.1% 4.5% 5.4%
Transit mode share (work) 7.2% 8.1% 9.5%
Transit mode share (non-work) 2.9% 3.2% 3.9%

Transit mode share is forecast to increase from 4.1% to 5.4% over the lifetime of the RTP –
a relative increase of over 30 percent. This is short of the RTP’s ambitious target to increase
transit, bike, walk and mode share by 200 percent, but it is nonetheless a significant increase.
Even though some workers will replace transit commutes with working from home on some days,
transit will likely continue to serve commutes because commutes tend to be long-distance trips
for which transit is a particularly useful alternative to driving.

In spite of signs that new transit service has recently been less effective at attracting riders, the
RTP still expects that growth in ridership will outpace growth in transit service. This is because
the RTP contains accounts for several other changes that support transit service, including
population growth, land use changes that locate more people and jobs near transit, and
new tolls and parking pricing (see the Climate section for further discussion), which encourage
some drivers to shift to using transit.

Much has changed about transit, but transit’s importance to the region has not changed, and
neither has the evidence about what makes transit service effective at drawing riders. All other
things being equal, transit services tend to draw more riders – which means that they also support
progress toward the region’s mobility and climate goals – when they:
• Serve areas that are plentiful with housing and jobs.
• Serve areas where high concentrations of people of color and people with low incomes live
and work, such as equity focus areas.
• Arrive frequently.

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• Connect origins and destinations quickly.

These principles continue to guide transit planning efforts in the region, including the High-
Capacity Transit Strategy that is included in the 2023 RTP update.

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SAFETY
Table 7.4: Summary of draft system analysis results: Safety
Base Base
year year 2030 2030 2045 2045
Measure value target result target result target
The RTP aims to eliminate transportation related fatalities and serious injuries for all users of the region’s
transportation system by 2035, and to maintain progress toward this goal in interim years.
Number of fatalities 93 52
Fatalities per 100 million vehicle miles traveled 0.9 0.5
Number of serious injuries 512 384
Serious injuries per 100 million vehicle miles 4.8 3.6
traveled
Number of non-motorized fatalities and serious 129 95
injuries
The RTP seeks to advance safety by funding projects that benefit safety in the most dangerous locations on the
region's transportation network.
% of the capital RTP spending invested in projects 74% 73%
identified as safety projects
% of the capital RTP spending invested in projects 46% 59%
located on high injury corridors or intersections
% of the capital RTP spending invested in safety 38% 51%
projects that are located on high injury corridors or
intersections

The region is not on track to meet its target of reducing fatal and serious injury crashes to
zero by 2035. Table 7.4 shows baseline 2020 results for several different indicators that examine
different types of crashes (fatal crashes, serious injuries, and non-motorized crashes involving
vulnerable users) using different indicators (both rates and absolute values) and compares them
2020 targets that represent a sixteen percent reduction in crashes compared to 2014, when the
region adopted this safety targets, and a fifty percent reduction by 2025. By every safety
measure that the RTP tracks, the region’s streets are getting less safe, and the RTP is not
meeting the interim 2020 targets that it established to maintain progress toward the 2035 Vision
Zero goal.

The needs assessment and Urban Arterials Brief prepared in Fall 2022 contain more information
on where crashes are occurring in the region and who is affected by different types of crashes that
helps to explain and contextualize the results above. 6 Key findings include:
• Pedestrians experience a disproportionately high number of traffic deaths.
• Traffic fatalities are decreasing among bicyclists.

6
[Link]
and
[Link]
0policy%[Link]

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• A majority of serious crashes and bike/ped crashes occur in equity focus areas (see the Equity
section for more information).
• Speed, alcohol, and/or drugs continue to be the most common contributing factors in severe
and fatal crashes in the region.
• Serious crashes, and particularly fatal pedestrian crashes, are increasing both in the Greater
Portland region and nationally. The growing popularity of SUVs and other heavier and larger
models of passenger vehicles is contributing to these trends; by 2025, light-trucks, SUVs, vans
and pickups are estimated to make up 78 percent of sales. Research indicates that crashes
involving SUVs and similar weight vehicles are more likely to be serious and to injure or kill
pedestrians and bicyclists. 7

More than two thirds of capital funding in the RTP goes to projects that lead agencies identified as
safety projects, and over half of the capital budget goes toward projects that are on the high-injury
network, which includes the relatively small share of roads and intersections where most of the
serious crashes in the region occur. However, a smaller share of the near-term (2023-30) RTP
spending is devoted to these projects than of the total budget, which suggests that there may be
additional opportunities to prioritize near-term investments in safety. See Chapter 3 for a map of
the high injury network that is used in these safety analyses.

7
Tyndall, Justin. “Pedestrian Deaths and Large Vehicles.” Economics of Transportation, Volumes 26–27, June–
September 2021. [Link] and
Monfort, Samuel S.; Mueller, Becky C. “Pedestrian injuries from cars and SUVs: updated crash outcomes from the
Vulnerable Road User Injury Prevention Alliance (VIPA).” Traffic Injury Prevention (TIP), Insurance Institute for
Highway Safety, May 2020. [Link]

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EQUITY
Table 7.5: Summary of draft system analysis results: equity
Base Base
year year 2030 2030 2045 2045
Measure value target result target result target
Safety is a critical issue in equity focus areas. The RTP aims to eliminate transportation related fatalities and
serious injuries for all users of the region’s transportation system, particularly in equity focus areas, which
experience higher rates of serious crashes.
Serious crashes in Equity Focus Areas (EFAs) 65% 35%
Pedestrian- and bicyclist-involved crashes in 75% 25%
Equity Focus Areas (EFAs)
The RTP prioritizes completing the bicycle and pedestrian system in equity focus areas (relative to other
communities) to provide safe streets for the most vulnerable travelers.
% of the pedestrian network that is complete 70% 45% 76% 49% 81% 58%
within EFAs
% of the pedestrian network near transit that 73% 53% 78% 56% 83% 64%
is complete within EFAs
% of the bicycle network that is complete 61% 49% 68% 53% 75% 58%
within EFAs
% of the bicycle network near transit that is 64% 55% 72% 60% 77% 65%
complete within EFAs
The RTP prioritizes improving access to jobs within equity focus areas (relative to other communities). 8
% of regional jobs accessible by transit in 8% 5% 9% 5% 11% 5%
equity focus areas
% of regional jobs accessible by driving in 42% 40% 43% 40% 40% 33%
equity focus areas
The RTP seeks to advance equity by funding projects that benefit equity in the communities that have the
greatest needs.
% of the capital RTP spending invested in 68% 75%
equity projects (transit or walk/bike
investments)
% of the capital RTP spending invested in 36% 36%
projects located in equity focus areas
% of the capital RTP spending invested in 27% 26%
equity projects that are located in equity
focus areas

8
The results shown here measure access to all jobs during peak hours. Community feedback has emphasized
that marginalized people particularly prioritize access to community places such as schools, grocery stores and
community services and access to jobs that they are qualified for, and that marginalized people are less likely to
commute during peak hours and more likely to need to travel throughout the day. Metro staff analyzed access to
jobs by wage level and access to community places, and also access during off-peak periods. All of these analyses
show the same basic patterns as the results in Table 7.5 – access to destinations via transit and auto is slightly
better in equity focus areas than in other communities, and access to destinations via auto is much higher than
access via transit – and this memorandum does not reproduce those results in order to conserve space. The final
RTP will include complete results of the accessibility analysis.

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The RTP achieves mixed results on equity – it invests equitably, but these investments do
not undo longstanding transportation inequities in safety and access to jobs. The region’s
bicycle and pedestrian networks are currently more complete in many Equity Focus Areas (EFAs)
where people of color, low-income people and people who speak limited English are concentrated,
and the RTP continues to invest in completing those networks. However, recent data shows that
these areas continue to experience three times the number of crashes that involve people walking
and biking – who are particularly vulnerable to death and injury during crashes – and almost
twice as many fatal and serious injury crashes as other parts of the region.

Similarly, people living in some EFAs currently have significantly better access to jobs via
transit and driving than people living in non-EFAs, and the RTP continues to improve
access to jobs in these communities relative to others. However, despite continued efforts to
grow transit service during this and previous RTP cycles, driving in general continues to offer
much more efficient and convenient access to jobs than transit does. Both community
feedback and research emphasize that people of color and people with low incomes are more
likely to rely on transit. This suggests that an equitable transportation system is one in which
transit offers the same level of access to jobs as driving – and even with the investments in the
RTP the region still falls short of providing equal access via driving and transit.

Over two thirds of RTP capital spending goes toward projects that invest in the transportation
equity needs identified by EFA residents, and over one third goes toward projects in EFAs, with a
slightly higher share of long-term funding than near-term funding devoted to these priorities. See
Chapter 3 for a map of the equity focus areas that are used in these analyses.

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ECONOMY
Table 7.6: Summary of draft system analysis results: economy
Base Base
year year 2030 2030 2045 2045
Measure value target result target result target
The RTP aims to decrease driving and transit travel times along regional mobility corridors relative to the
base year.
% change in average mid-day corridor 9 travel 0.7% 0% 3.7% 0%
times vs. 2020 - driving
% change in average evening peak corridor 1.5% 0% 3.8% 0%
travel times vs. 2020 - driving
% change in average off-peak corridor travel - 0% - 0%
times vs. 2020 - transit 3.4% 3.8%
% change in average evening peak corridor - 0% - 0%
travel times vs. 2020 - transit 1.2% 1.6%
The RTP prioritizes completing the bicycle and pedestrian system in job and activity centers (relative to the
regional average) in order to provide safe and convenient options for short trips and connections to transit.
% of the pedestrian network that is complete 74% 57% 77% 62% 80% 69%
within centers, station communities, and mixed-
use areas
% of the bicycle network that is complete within 63% 55% 69% 60% 74% 66%
centers, station communities, and mixed-use
areas
% of the pedestrian network that is complete 39% 57% 44% 62% 52% 69%
within employment and industrial areas
% of the bicycle network that is complete within 55% 55% 58% 60% 64% 66%
employment and industrial areas
The RTP supports the economy by prioritizing by filling gaps in the transportation network and by designing
the transportation system for multimodal travel.
% of the capital RTP spending invested in 89% 88%
projects located in planned job centers and
growth areas
% of the capital RTP spending invested in 84% 80%
projects located in areas that currently have
higher-than-average concentrations of jobs

The RTP achieves mixed results on regional economic goals. It reduces transit travel times
along the corridors that connect the region’s centers, but driving times along these corridors
increase, particularly in 2045, due to increased congestion. However, travel times increase at a
much slower pace than the region’s population and employment grows (under 4% by 2045,
compared to 29% growth in population and 23% growth in jobs), which suggests that the RTP

9
Metro uses mobility corridors that link different regional centers for the purposes of travel analysis
([Link] and forecasts driving and transit times between key
destinations along each corridor using its travel model. The averages presented for this metric are based on the
longest-distance route along each corridor for which forecasted both driving and transit travel times are
available, and, in the case of peak-hour results, the route corresponding with the direction of peak travel.

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helps traffic move more efficiently along these corridors than it would otherwise given the
pressure that new growth and new trips put on the transportation system.

In order to help workers take advantage of the faster and more frequent transit
connections that the RTP provides, the RTP must also complete the bicycle and pedestrian
networks in the communities where jobs are located. Doing so gives transit commuters safe
and convenient connections from transit stations to their places of work. The bicycle and
pedestrian network is already more complete than average in centers, station communities and
other mixed-use areas where many of the region’s office, service, and other jobs are located, and
the RTP continues to prioritize investment in these areas. However, even with the investments
planned in the RTP, the pedestrian and bicycle networks – particularly the former – are not nearly
as complete in employment and industrial areas that are home to many of the region’s
manufacturing and transportation jobs as it is in the rest of the region. Many businesses in these
areas need freight access and ample floor space for manufacturing or warehousing, which can
pose challenges to creating convenient and safe walking and biking environments, and new transit
options, particularly smaller and more flexible service that can serve routes with many dispersed
stops, are needed to give people a car-free option that connects within walking or biking distance
of their jobs. However, completing these networks, especially the pedestrian network, can help
transit riders safely and conveniently complete the last mile of their commutes.

The RTP invests heavily in projects that are located both in planned job centers and in the
places where jobs are currently concentrated, which reflects a continued emphasis on
investing in transportation facilities that support current and planned growth.

Analyses under development

Note: The RTP uses freight-related performance measures to examine economic performance.
The final draft of the 2023 RTP update will include versions of the travel reliability measure
discussed in the Mobility section that are focused on examining the variations in travel times and
speed on the regional freight network. Metro staff are working to update these measures through
the Freight and Commodities Movement Study, and will share freight performance measure
results with RTP policy and technical committees as part of the Freight and Commodities
Movement Study results in July 2023.

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CLIMATE AND ENVIRONMENT
Note: This section will be updated in consultation with ODOT, DLCD and DEQ.
Table 7.7: Summary of draft system analysis results: climate and environment
Base Base
year year 2030 2030 2045 2045
Measure value target result target result target
The RTP aims to reduce greenhouse gas emissions and vehicle miles traveled in order to meet regional
climate targets set by the state which are to reduce vehicle miles traveled per person by 35% by 2050, with
a 30 percent reduction by 2045 and a 25% reduction by 2040, compared to 2005.
% reduction in VMT per capita (relative 22-40% 10 30%
to 2005)
% reduction in GHG emissions per capita 22-40%10 30%
(relative to 2005)
The RTP aims to reduce total greenhouse gas emissions in order to meet State goals.
Total GHG reductions (metric tons) 10,831 9,109 10,831 9,300 10,831
The RTP aims to keep criteria pollutants from mobile sources below thresholds set by the federal
government.
Total summer carbon monoxide 261,097 111,508 261,097 77,805 261,097
emissions (lbs)
Total winter carbon monoxide emissions 206,410 85,266 206,410 71,579 206,410
(lbs)
Total summer volatile organic compound 11,734 2,836 11,734 2,374 11,734
emissions (lbs)
Total winter particulate matter 10 375 125 375 62 375
exhaust (lbs)
Total winter particulate matter 2.5 336 111 336 55 336
exhaust (lbs)
The RTP aims to keep air toxics from mobile sources below current levels.
Diesel particulate matter (pounds) 404 132 404 63 404
Acrolein (pounds) 7 1 7 1 7
Benzene (pounds) 306 53 306 39 306
1,3-butadiene (pounds) 37 2 37 1 37
Formaldehyde (pounds) 126 19 126 10 126
Arsenic (grams) 66 72 66 82 66
Chromium 6 (grams) 0 0 0 0 0
Naphthalene gas (grams) 8 2 8 1 8
The RTP seeks to advance climate and resilience by funding high-impact greenhouse gas reduction
strategies and projects on key emergency routes.
% of the capital RTP budget invested in 32% 28%
high- or moderate-impact Climate Smart
Strategies

10
Metro reports a range of results for per capita VMT and GHG reductions in order to account for the uncertainty
surrounding the state’s plans to implement the changes to transportation pricing assumed in the Statewide
Transportation Strategy (see discussion later in this section). According to the state rules governing regional
climate targets, the RTP meets its targets as long as the targets are within this range of uncertainty.

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% of the capital RTP budget invested in 73% 72%
projects located on Emergency
Transportation / Seismic Lifeline routes

The RTP meets its targets to reduce criteria pollutant and air toxic emissions. These
emissions are known to cause health and respiratory issues for people and damage the
environment, so meeting this goal also supports public health and the general health of the
region’s ecosystem. Progress toward this target is largely driven by the fact that the next
generation of vehicles is expected to produce less pollution than the cars that are currently on the
road. The region’s success in reducing per capita VMT also helps to ensure that increases in
driving don’t counteract the benefits of cleaner vehicles.

The RTP meets state-mandated regional climate targets by implementing the projects and
programs in the constrained RTP project list in combination with state-led actions
identified in the Oregon Statewide Transportation Strategy (STS), which is Oregon’s strategy
to reduce transportation-sector GHG emissions. The STS includes state-led pricing actions, in
addition to implementation of clean vehicle and fuel programs and regulations at the state and
federal level. The fleet and technology actions cover variables such as the share of zero-emission
vehicles, the carbon intensity of fuels, the balance of cars and trucks in the passenger fleet, and
vehicle turnover. The state-led pricing-actions assumed in the STS assume that the state will
implement extensive changes to how transportation revenues are collected in Oregon, both to
replace the gas tax, which is not producing enough revenue to meet Oregon’s transportation
needs, and to reduce GHG emissions by managing demand for driving and encouraging the use of
cleaner modes and vehicles. The following subsection provides more detail about how the
transportation investments in the RTP work alongside the technology and pricing assumptions in
the STS – particularly the latter – to meet the region’s climate targets.

Pricing impacts the region’s progress toward climate goals

The RTP climate targets are designed to ensure that the region and state work together to meet
Oregon’s transportation-sector GHG reduction goals. The climate analysis must reflect both the
transportation investments and policies in the RTP and the impact of state vehicle and fuel
regulations as reflected in the Statewide Transportation Strategy (STS). More discussion of the
role of state-led pricing actions in meeting the region’s climate targets and mobility goals is
recommended, because the RTP climate analysis reveals that these actions have a significant
impact on VMT and GHG emissions, and the mobility analysis shows how pricing helps to maintain
reliable travel times on throughways.

The STS contemplates several additional revenue mechanisms, including a road user charge that
levies per-mile fees on drivers, carbon taxes, and additional road pricing beyond what is currently
included in the 2023 RTP. These changes are not reflected in the RTP because they are not yet
adopted in state policies or regulations, but the climate analysis for the RTP is allowed to include

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them because these state-led pricing actions are identified in STS and were assumed when the
state set the region’s climate targets. 11

In order to illustrate the impact that the pricing envisioned in the STS has on progress toward the
region’s climate targets, Metro staff developed four scenarios that represent different
assumptions regarding the implementation of the pricing actions included in the STS:
• RTP23 + adopted plans (AP): Includes all RTP investments and throughway pricing, as well
as currently adopted plans and policies assumed in the STS, and excludes the pricing and
revenue mechanisms described as “additional” under the scenarios below.
• RTP23 + STS: Includes RTP investments and throughway pricing as well as all additional
pricing and revenue mechanisms included in the STS. These consist of a combination of fees
and taxes that are modeled as per-mile fees.
• Target 1: Includes RTP23 investments and throughway pricing as well as the amount of
additional pricing and revenue mechanisms from the STS that are necessary to meet regional
climate targets by using pricing to manage travel demand.
• Target 2: Includes RTP23 investments and throughway pricing as well as the amount of
additional pricing and revenue mechanisms from the STS that are necessary to meet regional
climate targets by using pricing to manage travel demand – assuming that all revenues from
these new pricing mechanisms generated within the region are reinvested in increasing
transit service. 12 To create this scenario, the consulting team supporting this analysis tested
several different levels of pricing and corresponding increases in transit service until they
identified the scenario that meets regional climate targets using the smallest amount of
additional pricing.

Table 7.8 describes the assumptions behind these two scenarios, and Figure 7.6 illustrates the
VMT reductions that each scenario achieves.
Table 7.8: Climate scenarios and associated assumptions
Target 2 (pricing +
RTP23 + AP RTP23 + STS Target 1 (pricing) transit)
Throughway RTP pricing on STS pricing on the $0.09/mi. on the $0.07/mi. on the
pricing portions of I-5 and I- entire throughway and entire entire throughway
205 averaging arterial network throughway network.
$0.11/mi. averaging $0.13/mi. network.
($0.17/mi. on

11
OAR 660-044-0030(4)(a):
[Link]
yA7LSgdLuG_bsnXZJvNrXnI8x!-286176765?ruleVrsnRsn=293065
12
This scenario assumes that 50 percent of revenues from the STS pricing and revenue mechanisms for toward
funding increases in transit service, and that investments in transit service would be consistent with the mix of
transit modes (e.g., local bus, frequent bus, light rail) and transit service costs reflected in the 2023 RTP
constrained investments. See the appendix for a technical discussion of the development of the Target 2
scenario.

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 Target 2 (pricing +
RTP23 + AP RTP23 + STS Target 1 (pricing) transit)
throughways and
(averaging $0.17/mi.
Per-mile None Maximum allowable $0.06/mi. $0.05/mi.
fees STS levels, roughly
$0.10/mi.
Transit RTP levels of transit RTP levels of transit RTP levels of 77% increase above
service service service transit service RTP levels of transit
service
VMT 22% 40% 30% 30%
reductions
(vs. 2005
levels)
Meets No Yes (exceeds) Yes (meets) Yes (meets)
targets?

Figure 7.6: Daily VMT per capita by scenario vs. regional climate target (source: Metro/RSG
VisionEval analysis)

These results demonstrate that there are multiple paths to meeting regional climate targets
through a combination of increased pricing and other climate strategies including demand
management, system management, and increased investment in alternatives to driving. The two
target scenarios shown above represent two pathways to meeting the region’s targets – one that
does so entirely by using additional pricing to cover the gap between RTP emissions and regional
targets and one that covers this gap through a combination of pricing and reinvestment in transit
– but there are likely other pathways to meeting (or exceeding) regional targets that involve

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either different mixes of pricing and reinvestment of pricing revenues in the high- and moderate-
impact GHG reduction strategies identified in the region’s Climate Smart Strategy. Any new
pricing program has the potential to produce new revenues that can be reinvested in GHG
reduction strategies.

This reinvestment is critical, because the results above show that the region can meet its
climate targets while also advancing mobility and equity goals if revenues from new
pricing programs are reinvested in other GHG reduction strategies. Relying on pricing alone
to reduce VMT and GHG emissions from driving, as tested in the Target 1 scenario, would require
charges of 9 cents per mile on throughways and 6 cents per mile on roads throughout the region
to meet regional climate targets. If revenues from new pricing are invested in transit, which also
reduces VMT and GHG emissions, the region could meet its targets at while charging drivers
roughly 25% less than under Target 1. Lower levels of pricing and higher levels of transit service
would both minimize additional costs for drivers and provide affordable alternatives to priced
vehicle trips.

Pricing projects in the 2023 RTP and their impacts

Three different projects in the 2023 RTP implement pricing in the form of tolls on the region’s
throughways: the Regional Mobility Pricing Project (RMPP), which levies tolls along most of
Interstates 5 and 205 within the region; and the Interstate Bridge Replacement Program and I-
205 Tolling projects, which include tolls on I-5 and I-205 within their respective project areas.
Though further analysis of pricing and its impact on regional climate and mobility goals is
recommended, the pricing currently included in the RTP has significant benefits for the climate
and throughway reliability results discussed above. Figure 7.7 shows the planned extent of tolling
under the 2023 RTP; the I-5 Bridge and I-205 Toll Projects are shown as green dots with call-outs
while the Regional Mobility Pricing Project corridors are shown as dark blue lines.

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Figure 7.7: Throughways that are tolled under the 2023 RTP (Source: ODOT)

Tolls for these three RTP projects are intended to both manage travel demand and raise
transportation revenues. The exact tolling extents and rates of these projects have already
evolved significantly as the projects have developed, and they will continue to evolve as the
projects progress through their respective federal planning processes. The evolutionary nature of
this work means that the tolling that is represented in the RTP is unlikely to match the final
tolling that is implemented in the region.

The version of the three tolling projects currently included in the 2023 RTP update are based on
what was considered to be the best approximation of those projects’ current plans as of April 1st,
2023. Collectively, these projects envision charging higher prices in the highest demand hours of
the day (peak periods), and in the most congested portions of I-5 and I-205 (as well as in the
extents of the I-5 Bridge Replacement and I-205 Tolling Projects) and lower prices in lower
demand hours of the day (off-peak periods) and in less congested areas. Two of these projects also
include significant changes to the motor vehicle and transit networks, which combine with tolling

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to influence travel behavior. Table 7.9 summarizes the elements of each of the three tolling
projects that are captured in RTP update.
Table 7.9: Key elements of the three 2023 RTP projects that include tolling
Project Elements captured in the RTP
I-5 Interstate Bridge • Variable rate tolls for drivers crossing the river ranging from $2.05 - $3.15
Replacement Program between 5 AM and 11PM, with a minimum overnight toll of $1.50
• A new I-5 Columbia River crossing with three through lanes, safety shoulders,
and one auxiliary lane in each direction
• A 1.9-mile extension of the MAX Yellow Line, including three new stations, from
the existing Expo Center Station to a terminus near Evergreen Boulevard in
Vancouver
• A new arterial bridge for local traffic with a shared use path for pedestrians and
bicyclists
• Improvements to seven interchanges
• Wider shoulders to accommodate express bus-on-shoulder service along I-5
between Victory Boulevard in Portland and State Route 500 in Vancouver
I-205 Toll Project • Toll rate assumptions for the I-205 Toll Project Draft Environmental
Assessment13 include variable rate tolls for drivers crossing the Tualatin River
and Abernethy bridges ranging from $0.55 - $2.20 (per bridge) between 5 AM
and 11PM, with a minimum overnight toll of $0.55 (per bridge)
• Addition of a third through lane in both directions of I-205 between the Stafford
Road exit and OR 43
• A northbound auxiliary lane between OR 99E and OR 213
• Seismic bridge upgrades along I-205; replacement of the Tualatin River Bridges
I-5 and I-205 Regional • Preliminary modeling assumptions for the Regional Mobility Pricing Project
Mobility Pricing Project include variable rate tolls for drivers on:
o I-205 between the Columbia River (north) and the intersection of I-5
(south).
o I-5 between the Columbia River (north) and the Boones Ferry Bridge (south).
Tolls vary by location, direction of travel, congestion levels, and time of day; no
tolls are assumed overnight.
• Consideration of toll rate schedules will be part of the environmental review
process, as well as the traffic and revenue analysis, both of which will occur in
2023-24

It is important to note that the RTP does not account for how rates might be discounted for
low-income travelers and other marginalized communities, how revenues might be
reinvested to provide affordable and convenient alternatives to tolled trips, or for other
adjustments to mitigate the impacts of tolling. These details are not available yet, and will be
determined as the projects listed above progress.

The large-scale, aggregate nature of Metro’s travel model makes it challenging to detail the
regional impacts of any single project, even one as potentially significant as tolling. Instead of
attempting to isolate the impacts of tolling, Metro staff identified several qualitative findings

13
I-205 Toll Project Draft Environmental Assessment

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about tolling’s impacts based on the modeling results for the constrained RTP scenario and on
Metro’s experience supporting tolling analyses in the region:
• Tolling is expected to reduce total VMT. VMT is likely to decline both during peak periods
and throughout the day on the tolled portions of I-5 and I-205, as solo drivers whose trips
would be priced shift to carpooling or using transit. There is likely to be some re-routing of
traffic to parallel arterials, which would increase VMT on these facilities. However, the
potential increase in VMT on parallel arterials is smaller than the anticipated decrease on the
tolled throughways, leading to a net reduction in VMT.
• Tolling is expected to reduce congestion on I-5 and I-205. Since tolling reduces VMT on I-5
and I-205, it also frees up capacity, reducing vehicle hours of delay on those tolled
throughways both during peak periods and throughout the day. The anticipated diversion to
parallel arterials discussed above is not expected to produce substantial additional delay on
arterials since most diversion is expected to occur in the off-peak periods, when arterials have
excess capacity. Also, some vehicles that presently reroute to arterials to avoid congestion on
I-5 and I-205 would choose to pay the toll and benefit from a more efficient trip. As ODOT
proceeds to develop these projects, it intends to optimize pricing in order to reduce
congestion on throughways. Pricing is one of the reasons that the RTP maintains existing
levels of throughway reliability even as the region grows. According to FHWA, removing even
as few as five percent of the vehicles from a congested roadway could enable traffic to flow
much more efficiently. 14
• Tolling will likely lead to an increase in carpooling. Average vehicle occupancy is expected
to increase along all tolled throughways, and particularly on the portions of I-5 that also have
High Occupancy Vehicle (HOV) lanes that only allow vehicles with two or more people to use
them during peak periods. This increase in carpooling is one of the factors contributing to the
VMT and congestion reductions discussed above.
• Tolling will likely encourage people to shift when they travel. Travelers who have flexible
schedules and are price-sensitive are expected to shift some of their trips to shoulder or off-
peak periods instead of paying higher tolls during peak travel times. This “peak-spreading” is
one of the factors contributing to tolling’s impact on congestion.

As noted previously, more evaluation of future pricing strategies is needed to better understand
their effect on the region’s parallel arterials, low-income households and land use patterns to
ensure any unintended consequences are identified and addressed in design and implementation.

14
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Chapter 8
Moving Forward Together
2023 Regional Transportation Plan
July 10,2023 Public Review Draft
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Table of Contents
8.0 Purpose ........................................................................................................................ 8-1

Chapter organization ................................................................................................................ 8-1

8.1 INTRODUCTION ........................................................................................................ 8-3

8.2 Planning and programs ............................................................................................. 8-7

8.2.1 Local Implementation .................................................................................................. 8-7

8.2.2 Metro’s Regional Programs.......................................................................................... 8-7

8.2.3 Region-wide Planning ................................................................................................ 8-16

8.2.4 Corridor Refinement Planning ................................................................................... 8-29

8.3 Projects .................................................................................................................. 8-56

8.3.1 Major Project Development....................................................................................... 8-56

8.3.2 Metropolitan Transportation Improvement Program ............................................... 8-79

8.4 Data and tools ............................................................................................................ 8-88

8.4.1 Performance-based planning and programming ....................................................... 8-88

8.4.2 Data Collection and Coordination .............................................................................. 8-88

8.4.3 Analysis Tool Maintenance and Enhancement .......................................................... 8-90

8.4.4 Analysis Tool Development ........................................................................................ 8-91

[Link] Housing and Transportation Expenditure Tool ......................................................... 8-92

8.4.5 Monitoring and Reporting Tools ................................................................................ 8-95

FIGURES
Figure 8.1 2040 Growth Concept (2020) ..................................................................................... 8-3
Figure 8.2 How A Mobility Corridor Strategy Is Developed and Implemented ......................... 8-33

Figure 8.3 Illustrative Map of Mobility Corridors in the Portland Metropolitan Region........... 8-35

Figure 8.4 Regional Mobility Corridors Recommended for Future Refinement Planning ........ 8-36

Figure 8.5 Interstate Bridge Replacement Program .................................................................. 8-60

Figure 8.6 I-5 Rose Quarter Improvement Project Location ..................................................... 8-66

Figure 8.7 I-5 Rose Quarter Improvement Project Features ..................................................... 8-68

Figure 8.8 I-205 South Widening and Seismic Improvements Project Area Map ..................... 8-69

Figure 8.9 I-205 Toll Project Area Map ..................................................................................... 8-70

Figure 8.10 Regional Mobility Pricing Project Extents .............................................................. 8-72

Figure 8.11 Earthquake Ready Burnside Bridge Proposed Typical Cross Section .................... 8-75

Figure 8.12 82nd Ave Transit Corridor....................................................................................... 8-80

TABLES
Table 8.1 Overview of Region-wide Planning Activities ............................................................ 8-16
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8.0 PURPOSE
Metro is the metropolitan planning organization (MPO)
designated by Congress and the State of Oregon, for the
Oregon portion of the Portland-Vancouver urbanized
area, serving 1.7 million people living in the region’s 24
cities and three counties. As the MPO, Metro formally
updates the Regional Transportation Plan every five
years in cooperation and coordination with the Oregon
Department of Transportation and the region's cities,
counties and transit agencies. Learn more about the 2023
Regional Transportation Plan at
The Regional Transportation Plan is a blueprint that [Link]/rtp
guides investments for all forms of travel throughout
greater Portland – driving, taking transit, biking and walking – and the movement of
goods and services. The plan identifies current and future transportation needs,
investments needed to meet those needs, and what funds the region expects to have
available over the next 22 years to make those investments a reality.

Updates to the plan and subsequent implementation must meet federal requirements and
state policies and regulations contained in Oregon’s Transportation Planning Rule (which
implements Statewide Planning Goal 12), and Oregon’s Metropolitan Greenhouse Gas
Emissions Reduction Targets Rule. The plan also implements regional policies contained
in Metro’s Regional Framework Plan. In combination, these requirements call for
development of a multimodal transportation system plan that is integrated with and
supports implementation of adopted local and regional land use plans including the 2040
Growth Concept and Climate Smart Strategy.

Chapter organization

This chapter summarizes future work to implement the RTP, consistent with federal, state
and regional requirements. The chapter is organized as follows:
8.1 Introduction: This section summarizes the purpose and content of the chapter.
8.2 Planning and programs: This section summarizes local, regional and state
planning and programs that advance implementation of the plan.
8.3 Projects: This section summarizes major project development activities in the
region and the allocation of federal transportation funds to implement projects in
the RTP.
8.4 Data and tools: This section summarizes data and research activities to address
existing and emerging planning and policy priorities and innovative practices in

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 transportation planning and analysis and ensure that the region has the resources
to fulfill its transportation performance measurement and reporting
responsibilities.

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8.1 INTRODUCTION
Connecting Our Shared Values and Vision for the Future: Setting a Course for
Transportation

Metro worked with federal, state and local government partners, federally-recognized
Tribal governments as well as community members, community-based organizations, and
businesses to develop the 2023 Regional Transportation Plan. The result of that work is a
set of regionally identified goals and policies that guide our transportation planning and
investment decisions overall, strategies to help meet those goals and policies, a shared
understanding about existing financial resources, and a recommended set of projects that
make progress addressing the region’s significant and growing transportation needs and
challenges. The goals, policies, projects and strategies in this plan also address federal,
state and regional planning requirements based on our shared values and the outcomes
we are trying to achieve as a region, including implementation of the 2040 Growth
Concept.

Figure 8.1 2040 Growth Concept (2020)

The 2023 Regional Transportation Plan is a key tool for implementing the 2040 Growth
Concept and the Climate Smart Strategy– our region’s foundation for climate action.

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The plan sets an updated course for future transportation planning and investment
decisions and continued implementation of the 2040 Growth Concept – the region’s
adopted land use and transportation strategy for managing growth and building climate-
friendly and equitable communities and a strong economy.

Dramatic changes have unfolded since the RTP was last updated five years ago, many
documented in the Emerging Transportation Trends Study 1. As greater Portland
continues to emerge from the disruptions of the pandemic and respond to other urgent
trends and challenges, this update provides an
opportunity for all levels of government to work
together to deliver a better transportation future.

The plan takes into account the changing

circumstances and challenges facing our growing
region and addresses them directly, adopting new
approaches for addressing mobility and prioritizing
investments to advance transportation equity,
climate, safety, mobility and economic goals. Central
to this plan are innovative approaches to connect
community land use aspirations and transportation
investments and use of regional mobility corridor
strategies to comprehensively address our growing
transportation needs while protecting public and
environmental health. Each mobility corridor
strategy is uniquely tailored by optimizing operations
on existing throughways, and arterial streets that also
serve as transit and freight routes, completing gaps in The plan will be implemented
through a variety of policies,
biking and waking connections and strategically
projects, strategies and actions
expanding the transit and roadway system. at the local, regional, state and

This RTP incorporates a new regional mobility policy

focused on the policy outcomes of equity, options, safety, reliability, efficiency and access.
It includes performance targets focused on reducing vehicle miles traveled per capita,
building a complete and interconnected system, and reliability of throughways using
travel speed.

Through its policies, projects and strategies, the RTP aims to attract jobs and diverse
housing to our region’s downtown centers, main streets and employment areas. It seeks

1
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to increase the use of public transit, bicycling and walking, and reduce the amount of
miles that our region’s residents, employers and visitors need to drive in order to get
around. It also seeks to increase the safety, reliability and efficiency of the roadway and
transit systems for all travelers. When we measure our performance, we find we have
some successes, but overall the RTP falls short of meeting several performance targets set
forth in Chapter 7.

To make more progress toward the goals and objectives of the plan, the region must take
additional steps together and individually to address a wide range of planning,
programmatic and project activities that will make it easier to implement adopted
policies, projects and strategies. This chapter outlines those activities.

The plan will be implemented through a variety of strategies and actions at the local,
regional, state and federal levels. The various jurisdictions in the region are expected to
pursue policies, projects and strategies that contribute to meeting the agreed upon goals,
objectives and policies of this RTP.

Implementation of this plan will require a cooperative effort by all jurisdictions

responsible for transportation planning in the region, and will involve:
• Adoption of regional policies and strategies in local plans, including functional
classifications for all modes and land use and transportation needs and agreed upon
solutions identified in each mobility corridor strategy.
• A concerted regional effort to secure needed funding to build planned transportation
investments needed to serve our growing and changing region.
• Focusing investments and system management strategies to support implementation
of the 2040 Growth Concept and preserve the function of the region’s mobility
corridors in order to ensure that our land use and transportation policies are mutually
supportive and make it easier for people to live and move around our region.
• Ongoing monitoring for consistency of changes to local transportation system plans
(TSPs) and local Comprehensive Plans and land use designations with the RTP and
other agency plans, including the Oregon Department of Transportation's new Oregon
Transportation Plan, planned update to the Oregon Highway Plan and four-year State
Transportation Improvement Program (STIP), the Oregon Department of Land
Conservation and Development’s Transportation Planning Rule (TPR), the Oregon
Metropolitan Greenhouse Gas Emissions Reduction Rule, the Climate-Friendly and
Equity Communities (CFEC) Program and TriMet’s Transit Implementation Plan (TIP).

The Regional Transportation Plan is a living document and will continue to evolve and be
updated on a regular basis to address existing and emerging issues. Metro will continue to

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engage and collaborate with regional partners and stakeholders on all topics and provide
support to ensure successful implementation of this plan.

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8.2 PLANNING AND PROGRAMS
This section summarizes local, regional and state planning and programs that advance
implementation of the plan and 2040 Growth Concept.

8.2.1 Local Implementation

Local planning efforts which help implement the Regional Transportation Plan, include
updates to the local transportation system plans, concept plans for designated urban
reserves and topical, modal or subarea plans needed for consistency with the RTP or to
address specific local or subarea transportation needs or emerging issues.

Local plans and projects are developed and updated to meet local transportation needs
consistent with local land use plans and to implement the RTP and Regional
Transportation Functional Plan (RTFP) as well as local needs and priorities. The RTFP
directs how city and county plans will implement the RTP through their respective
comprehensive plans, local transportation system plans (TSPs) and land use regulations.
All of the actions included in the RTFP will help the region proactively address climate
change, improve access and mobility and support other desired outcomes.

The TPR includes provisions for local TSPs to be updated within one year of adoption of
the updated RTP, but allows for the RTP to determine a schedule for local plan
compliance. A schedule for local transportation system plan updates is available at
[Link]/tsp. The local plan updates are phased appropriately to support
local desires for completing plan updates in a timely manner, in coordination with other
planning efforts and to take advantage of state and regional funding opportunities. ODOT
will be funding TSP updates around the region to implement the Climate Friendly and
Equitable Communities Rule (CFEC).

In addition, the Portland metropolitan region has emerging communities- areas that have
been brought into the urban growth boundary since 1998, that have 2040 land use
designations, and that lack adequate transportation and transit infrastructure and
financing mechanisms. Additional work is needed to define the needs of emerging
communities and strategies needed to facilitate development in these areas, consistent
with the 2040 Growth Concept.

8.2.2 Metro’s Regional Programs

Metro is responsible for several on-going regional programs that provide a combination
of grants, technical assistance and planning to support local jurisdictions in implementing
the 2040 Growth Concept and RTP. Modal experts provide expertise and support on
freight, bicycle, pedestrian, motor vehicle, transit, Intelligent Transportation Systems

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(ITS) and operations planning, and topic experts provide support on climate change,
equity, safety, street design, safe routes to school, resilience, transportation funding,
brownfields, equitable housing and transit-oriented development. Metro’s Regional
Flexible Funds provide programmatic funding to help support that technical assistance,
and capital funds to support implementation. The region’s 2040 Grant Program supports
planning processes to align land use and transportation goals, and the Equitable Housing
grant program specifically focuses on supporting planning efforts to increase access to
affordable housing across the region.

Regional programs identified in the Unified Planning Work Program, adopted annually by
the Joint Policy Advisory Committee on Transportation (JPACT) and the Metro Council,
are described below.

[Link] Civil Rights and Environmental Justice program

Metro’s transportation planning policies and programs ensure compliance with Title VI of
the 1964 Civil Rights Act; the Executive Order on Environmental Justice; Section 504 of
the 1973 Rehabilitation Act and Title II of the 1990 Americans with Disabilities Act; Goal 1
of Oregon’s Statewide Planning Goals and Guidelines; and Metro's organizational values of
Respect and Public Service. The program is advancing methods on identifying potentially
affected populations, engaging those populations in the development of policy and
program decisions, and analyzing the effects of policies and programs for historically
marginalized communities.

Metro's work to ensure compliance includes implementing outreach strategies that help
marginalized populations overcome barriers to participation; demographic data
collection and mapping; assessing outcomes of plans and programs on historically
marginalized communities; and trainings provided to staff on Title VI compliance
requirements and environmental outreach best practices.

Program work on compliance is found across many areas of transportation planning:

developing the Regional Transportation Plan (RTP), the Metropolitan Transportation
Improvement Program (MTIP), corridor planning projects that follow NEPA regulations
and in the Regional Travel Options program, which conducts federally-funded outreach
that promotes non-automobile transportation options. In 2012, Metro created a new
public engagement review process designed to ensure that Metro’s public involvement is
effective, reaches diverse audiences and harnesses emerging best practices. One of the
three criteria for selection of members of the Public Engagement Review Committee, an
advisory committee to the Metro Council, is ability to represent diverse communities in
the region. Other components of the public engagement review process that will
contribute to more inclusive engagement and accountability include an annual public
survey, meetings of public involvement staff from around the region to address best
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practices, an annual community summit to gather input on priorities and engagement
techniques, and an annual report.

Metro addresses compliance agency-wide as well as within transportation planning

functions and program-by-program. A key way that Metro complies across the agency is
with implementation of its Diversity Action Plan, updated and adopted by the Metro
Council in May 2017. The plan identifies goals, strategies and actions to increase diversity
and cultural competence at Metro in four key areas: internal awareness and diversity
sensitivity, employee recruitment and retention, committee membership and public
involvement, and procurement. Metro’s Strategic Plan to Advance Racial Equity, Diversity
and Inclusion was adopted by the Metro Council in June 2016 and identifies goals and
actions under five goals: Metro convenes and supports regional partners to advance racial
equity; Metro meaningfully engages communities of color; Metro hires, trains and
promotes a racially diverse workforce; Metro creates safe and welcoming services,
programs and destinations; and Metro's resource allocation advances racial equity.
Through the 2017-18 fiscal year, four departments are developing racial equity plans to
reach the goals of the racial equity strategy: Planning and Development, Parks and Nature,
Property and Environmental Services and the Oregon Zoo.

[Link] Regional Safe Streets for All Program

Metro’s regional Safe Streets for All program activities support advancing the Safe System
approach to achieve regional safety goals, policies and targets, including zero serious
crashes by 2035. Program activities are consistent with strategies and actions in the 2018
Regional Transportation Safety Strategy, the Regional Safe Routes to School Program, and
local and state safety plans. Following adoption of the 2023 RTP, Metro will coordinate
with regional partners and communities to implement the regional Safe Streets for All
Federal grant. The grant supports development of the regional safety program and local
Transportation Safety Action Plans. Efforts will focus on managing speeds for safety,
increasing pedestrian safety, and eliminating disparities for Black, Hispanic, Native
American, people with low income, and other populations disproportionately impacted by
serious traffic crashes.

Program activities include periodic updates on the state of safety to the Metro Council,
Metro technical and policy advisory committees and other interested parties; technical
assistance and coordination with local, regional, state, and federal partners in planning
and project development; support for the development and updates to local and regional
safety plans and policies; updates to safety data and analysis; updates to safety plans and
policies; safety data collection, maintenance, analysis and interpretation; encouraging
best practices in transportation safety and roadway design with funding and
programmatic support identifying legislative priorities, and collaborating on efforts to

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highlight safety in materials, messaging and campaigns. The program will be closely
coordinated with other regional transportation programs and region-wide planning
activities.

[Link] Regional Active Transportation Program

The Regional Active Transportation Program manages updates to and implementation of

pedestrian, bicycle and access to transit in the Regional Transportation Plan (RTP) and
the Regional Active Transportation Plan. The program provides guidance to jurisdictions
in planning for safe, efficient and comfortable active transportation access and mobility
on the regional transportation system (including regional trails and multi-use paths). The
program is closely coordinated with other regional transportation programs and region-
wide planning activities, and with Metro’s Parks and Nature Department. Additionally, the
program supports coordination with local, regional, state, and federal plans to ensure
consistency in approach to active travel needs and issues across the region. The program
ensures that prioritized regional bicycle and pedestrian projects are competitively
considered within federal, state, and regional funding programs. Ongoing data collection,
analysis, education, and stakeholder coordination are also key elements of Metro’s active
transportation program.

[Link] Regional Freight Program

The Regional Freight Program manages updates to and implementation of multimodal

freight elements in the Regional Transportation Plan (RTP) and supporting Regional
Freight Strategy. The program provides guidance to jurisdictions in planning for freight
movement on the regional transportation system. The program supports coordination
with local, regional, state, and federal plans to ensure consistency in approach to freight-
related needs and issues across the region. Metro’s coordination activities include
ongoing participation in the Oregon Freight Advisory Committee (OFAC), and Portland
Freight Committee (PFC). The program ensures that prioritized freight projects are
competitively considered within federal, state, and regional funding programs. Ongoing
freight data collection, analysis, education, and stakeholder coordination are also key
elements of Metro’s freight program. The program is closely coordinated with other
regional transportation programs and region-wide planning activities.

[Link] Regional Transit Program

The Regional Transit Program conducts long-range transit planning for the Portland
Metro region, managing updates to and implementation of the transit elements in the
Regional Transportation Plan (RTP) and supporting Regional Transit Strategy and its
components like the High-Capacity Transit Strategy. Together, these provide the roadmap
for making transit investments over time in collaboration with our transit providers and

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local government partners in the region and ensure that prioritized transit projects are
competitively considered within federal, state, and regional funding programs. The
Regional Transit Strategy will need to be amended to reflect the High Capacity Transit
Strategy adopted in 2023 and the Connecting First and Last Mile Study anticipated to be
complete in 2025 (see [Link] below).

Program work includes ongoing coordination with transit providers, cities and counties
to ensure implementation of these strategies through plans and capital projects, periodic
support for major transit planning activities in the region and coordination with state
transit planning officials. Ongoing data collection, analysis, education, and stakeholder
coordination are also key elements of Metro’s transit program. The program is closely
coordinated with other regional transportation programs and region-wide planning
activities.

Additionally, Metro and TriMet will be developing a Bus Rapid Transit (BRT) Strategic
Plan as part of regional transit planning efforts. The Plan will further advance work in the
High-Capacity Transit Plan and will outline a vision for how Frequent Express
(FX) investments can enhance existing and future frequent bus service corridors to serve
our region’s goals. It will identify a network of BRT routes, prioritize routes for
implementation, and identify potential regional funding strategies.

[Link] Transportation System Management and Operations (TSMO) Program

With the intent of supporting broad Transportation System Management and Operations
(TSMO) investment and activity in the greater Portland metropolitan region, the TSMO
program encompasses regional strategy development, implementation, grant
management, project management and system performance monitoring (includes
support to the region’s Congestion Management Process). The program facilitates a
variety of approaches to reliable, equitable, accessible, safe transportation related to
TSMO. These include intelligent transportation systems (ITS), Mobility on Demand (MOD)
and related mobility, freight technologies and operations.

The program maintains and periodically updates the regional TSMO Strategy. Strategy
updates incorporate RTP policy and develops actions and work plans for implementation.
Implementation involves convening operations leaders, engineers and technical experts
to share procedures and protocols such as the regional Intelligent Transportation System
(ITS) Architecture. ITS Architecture is needed to comply with the FHWA rule for federally
funded transportation projects and their compliance with the National ITS Architecture.
The program also guides implementation of the region’s ITS data communications assets
and networks, representing coordination of shared digital infrastructure. The regional
role for program implementation supports opportunities for inclusion, research,
education, and training on TSMO.
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The program manages the sub-allocation of 2021-24 and 2025-27 Regional Flexible
Funding for TSMO. These projects are prioritized through criteria that is consistent with
the adopted Regional TSMO Strategy. The TSMO program will provide support for
regional ITS projects by helping to apply systems engineering, ITS Architecture, standards
and procedures.

The program supports system performance monitoring including the federal mandates to
maintain a Congestion Management Process (CMP). The program implements actions
identified in the Arterial Performance Management Regional Concept of Traffic
Operations (RCTO) to advance the region’s performance measurement capabilities on
arterial streets. CMP performance monitoring will continue in order to support
development of the RTP, local Transportation System Plans and MTIP programming. The
program partners with PORTAL, a regional archived data user service managed by
Portland State University. PORTAL will continue to expand the collection, visualization
and uses of multimodal performance data in a way that will enhance the region’s ability to
diagnose and address mobility and support multimodal operations consistent with the
region’s CMP.

The TSMO program is closely coordinated with other regional transportation programs
and region-wide planning activities.

[Link] Regional Travel Options (RTO) and Safe Routes to School Programs

The Regional Travel Options Program implements RTP policies and the Regional Travel
Options Strategy to reduce drive-alone auto trips and personal vehicle miles of travel and
to increase use of travel options. The program improves mobility and reduces greenhouse
gas emissions and air pollution by carrying out the transportation demand management
components of the RTP through three primary program areas: Commute trip reduction,
Community-based travel options, and Safe Routes to School. Each RTO program area
works to advance RTP goals through the following strategies:
• Regional policy development
o The RTO program advances travel options policy through policies in the RTP
and developing the Regional Travel Options Strategy; as well as supporting
local and state policy development and implementation.
• Funding local program implementation
o The RTO program provides ongoing funding to local programs and partners to
deliver critical TDM services across the region and seeks out new partnerships
to ensure the travel needs of all residents are prioritized.
• Technical assistance & regional program administration

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 o The RTO program provides technical assistance to program providers through
trainings, resource development and peer networking and learning. In
addition, the RTO program administers regional programming to advance the
goals of the RTP and RTO strategy in collaboration with local partners.

The program maximizes investments in the transportation system and eases traffic
congestion by managing travel demand, particularly during peak commute hours. Specific
RTO activities include promoting transit, shared trips, bicycling, walking, telecommuting
and the Regional Safe Routes to School Program. The program is closely coordinated with
other regional transportation programs and region-wide planning activities.

[Link] Air Quality and Climate Change Monitoring Program

The Air Quality and Climate Change Monitoring Program ensures the RTP and the MTIP
address state and federal regulations and are carrying out the commitments and rules set
forth as part of the Portland Area State Implementation Plan (SIP), the Climate Smart
Strategy, the Oregon Transportation Planning Rule and the Metropolitan Greenhouse Gas
Emissions Reduction Target Rule. The program coordinates with other air quality and
climate change initiatives in the region and statewide and monitors federal and state
rulemaking that address air quality and greenhouse gas emission. Metro participates in a
regional collaborative to develop and implement a clean air construction strategy and
standards for clean diesel equipment and vehicles on select public improvement projects.

The program also conducts planning, research and tool development to support
monitoring and implementation of the region’s adopted Climate Smart Strategy and the
Carbon Reduction Program established by the federal Bipartisan Infrastructure Law (BIL)
and administered through the Federal Highway Administration.

[Link] Designing Livable Streets and Trails Program

The Infrastructure Investment and Jobs Act (IIJA) requires that MPOs must use 2.5
percent of their overall funding to develop and adopt complete streets policies, active
transportation plans, transit access plans, transit-oriented development plans, or regional
intercity rail plans. Metro complies with this requirement by funding a robust complete
streets program. Metro’s Designing Livable Streets and Trails Program provides regional
street and design guidelines and policies, regional arterial and throughway design
classifications and other tools to support local jurisdictions to design streets that
implement context-sensitive design solutions to advance regional and local goals.

Program activities include providing technical assistance to cities and counties as

transportation projects go through project development and design; convening
workshops, forums and field tours to increase understanding and utilization of best

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practices in transportation design. The program is closely coordinated with other regional
transportation programs and region-wide planning activities, and with Metro’s Parks and
Nature Department.

[Link] Regional Transit-Oriented Development Program

Since 2001, Metro’s Transit-Oriented Development (TOD) program has had a unique and
critical role in implementing the 2040 Growth Concept vision for vibrant, walkable
centers and station areas linked by transit. The program invests in compact mixed-use
projects near light rail stations, along frequent service bus corridors and in regional and
town centers throughout the region increasing opportunities for people live, work and
shop in neighborhoods with easy access to high-quality transit. The program provides
financial incentives for TOD projects to increase transit ridership, stimulate private
development of mixed-use buildings that would otherwise not proceed, and increase
affordable housing opportunities near transit in high cost and gentrifying neighborhoods
through land acquisition and project investments. With an increased focus on affordable
housing, the program supports construction of housing near transit and services that is
more affordable for older adults and lower- income households compared to what would
otherwise be built on a property. Related program activities include opportunity site
acquisition, investment in urban living infrastructure, and technical assistance to
communities and developers.

[Link] Investment Areas Program

Metro’s Investment Areas program helps communities build their downtowns, main
streets and corridors and leverage public and private investments that implement the
region’s 2040 Growth Concept. Projects include supporting compact, transit oriented
development in the region’s mixed use areas, evaluating high capacity transit and other
transportation improvements that cross city and county lines, and integrating freight and
active transportation projects into multimodal corridors.

Major public infrastructure investments do not stop at city or county lines. Our
transportation system connects the communities within greater Portland with the rest of
the state and the rest of the world. When our region spends billions of dollars on
expanding our road, transit and highway system to keep up with the continued
population and employment growth, those public investments can both benefit and
burden nearby communities. Over time, the region has become more strategic at linking
together our transportation, housing, economic, racial equity and environmental goals,
policies, and investments so that we can intentionally preserve and create great places
that serve all people throughout the region, even as change and growth occurs.

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The Investment Areas program completes system planning and develops multimodal
projects in transportation corridor refinement plans identified in the Regional
Transportation Plan. It also works on finance plans to align public investments in areas
that support the region’s growth economy. It includes ongoing involvement in local and
regional transit and roadway project conception, funding, and design. Metro provides
assistance to local jurisdictions for the development of specific projects as well as
corridor-based programs identified in the RTP.

Metro’s Investment Areas program has been connecting planning for major
transportation projects with the community’s broader goals and needs. While each area’s
conditions and needs are different, the approach of bringing together government,
community, and business partners provides a framework to produce a shared plan of
action to guide the investments and decisions of multiple agencies. Including a broader
set of stakeholders in a collaborative decision making process allows for decisions that
once seemed unclear or unfair to stakeholders to be more transparent. This approach
improves our ability to involve and include those who are affected by these decisions and
investments.

Investment areas can set the stage for a range of major capital investments beyond high
capacity transit. Other Metro investment areas have focused on freight routes connecting
major highways through small communities, redevelopment of brownfields in
employment areas, and leveraging the opportunities of a regionally significant riverfront
destination. The program is closely coordinated with other regional transportation
programs and region-wide planning activities, including corridor refinement planning
activities.

[Link] Better Bus Program

The Better Bus program is a joint Metro and TriMet endeavor that identifies transit
priority and access treatments to improve the speed, reliability, and capacity of TriMet
frequent service bus lines or streetcar lines, building on the previous Enhanced Transit
Concepts (ETC) Program. Better Bus treatments are relatively low-cost to construct,
context-sensitive, and can be implemented quickly to improve transit service in congested
corridors. The program develops partnerships with local jurisdictions and transit
agencies to design and implement Better Bus capital and operational investments.

[Link] Regional Congestion Pricing Program

The Regional Congestion Pricing Program ensures coordination and alignment between
the RTP and state and federal pricing policies and regulations, including the Oregon
Transportation Plan, the Oregon Highway Plan, the federal Value Pricing Pilot Program,
Section 129 of Title 23 of the U.S. Code, and ODOT’s future low-income tolling program.

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The program includes application of the findings and recommendations from the 2021
Metro Regional Congestion Pricing Study in the RTP and the MTIP. The program also:
• Coordinates tolling with regional planning efforts and corridor development work,
including ODOT’s Regional Toll Advisory Committee, Statewide Toll Rulemaking
Advisory Committee, and Equity and Mobility Advisory Committee
• Tracks, participates in, and/or advises on pricing programs and projects such as
ODOT’s Regional Mobility Pricing Project or City of Portland’s Pricing Options for
Equitable Mobility Task Force
• And monitors changes in federal and state rulemaking that may impact regional or
local pricing policies or programs.

8.2.3 Region-wide Planning

This section summarizes near-term planning at the regional-scale to advance

implementation of the plan. Each planning effort is needed to address regional
transportation policy or planning issues that could not be resolved during the plan
update.

Table 8.1 Overview of Region-wide Planning Activities

Lead Agency Proposed

timing

Regional Mobility Policy Implementation Action Plan Metro, ODOT 2024-25

Transit planning TriMet, SMART Annually
Cascadia Corridor Ultra-High-Speed Ground WSDOT 2023-28
Transportation Project Planning
Steel Bridge Transit Bottleneck Study Metro, TriMet 2034-45
Equitable Development Strategies Metro 2024-28
Workforce Diversification in Regional Transportation Metro 2024
Infrastructure Projects
Funding Strategy for Regional Bridges Counties 2024-28
Emergency Transportation Routes Project Phase 2 Metro, RPDO 2024-26
Regional Freight Rail Study Metro, Port 2024-26
Regional Transportation Functional Plan Update Metro 2024-25
2040 Refresh Coordination Metro TBD
Columbia Connects Metro 2023-24

These efforts will be completed consistent with the RTP goals, policies and strategies. A
lead agency, project partners and proposed timing for completion is identified for each
planning effort along with a description of the issues to be addressed and expected

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outcomes from the work. This work will be completed by multiple partners as resources
are available and pending future Metro Council and JPACT policy direction and will be
coordinated through the development and approval of the annual Unified Planning Work
Program (UPWP).

Table 8.2 Overview of Completed Region-wide Planning (from 2018 RTP Chapter 8)

Project Name Lead Agency

Regional Mobility Policy Update Metro and ODOT
Regional Congestion Pricing Study Metro
Transportation System Management & Operations Strategy Metro
Update
Jurisdictional Transfer Assessment Metro
Enhanced Transit Concept Pilot Metro
Emergency Transportation Routes Project – Phase 1 Metro and RDPO
Regional Freight Delay & Commodities Movement Study Metro
Central City Transit Capacity and Steel Bridge Analysis Metro and TriMet
Frog Ferry Passenger River Taxi Service Study Friends of Frog Ferry

[Link] Regional Mobility Policy Implementation Action Plan

Lead agency Partners Proposed timing
Metro and ODOT ODOT, cities, counties, TriMet, 2024-25
SMART, FHWA, SW RTC

Note – This section will be updated pending further testing of the draft mobility policy
measures that is underway and coordination with ODOT and DLCD on statewide
implementation of the Climate-Friendly and Equitable Communities Program.

The Regional Mobility Policy is a policy in the RTP as well as the Oregon Highway Plan
(OHP). It applies to transportation system planning and comprehensive plan amendment
processes within the Portland metropolitan area. The policy is used to identify
transportation needs and solutions during updates to the RTP and local transportation
system plans (TSPs), and to evaluate the potential impacts of local comprehensive plan
amendments and zoning changes.

An update to the regional mobility policy has been underway since 2019, through a joint
effort of Metro and the Oregon Department of Transportation (ODOT). In November and
December 2022, JPACT and the Metro Council accepted the new draft policies and
supported further development of the draft performance measures and targets during
2023 RTP system analysis in 2023. The draft regional mobility policy for the 2023 RTP
identifies three mobility performance measures: vehicle miles traveled per capita, system
completion for all modes (including TDM and TSMO) and throughway reliability using

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travel speed. More information about the regional mobility policy update can be found at:
[Link]/mobility

[Link] Transit Planning

Lead agency Partners Timing

TriMet and SMART Cities, counties, Ride Connection, other transit providers Annually

TriMet conducts annual transit service planning as part of the agency’s annual budgeting
process, guided by the TriMet Board. Annual service planning identifies specific service
changes to be implemented within the coming fiscal year. The annual service planning
process includes two rounds of public outreach as well as a formal public hearing. Service
improvements are funded both through TriMet’s general fund as well as the Statewide
Transportation Improvement Fund.

Each year, alongside the City’s annual budget, SMART staff compiles potential projects
that utilize federal funding for the upcoming fiscal year (July 1 – June 30). The list of
projects and associated costs is known as the Program of Projects, or POP. Members of the
public have opportunities to comment on these projects directly to staff in May, or at
meetings in May (Budget Committee) and June (City Council) of each year. Any changes
based on those public comments will be incorporated into a final version at the budget
adoption in June.

SMART recently update its Transit Master Plan, which identifies transit improvement
projects that could be implemented over the next 3 to 5 years. The plan identifies: where
frequency will be improved, the times of day and days of week to add service, where and
how connections between routes could be made, and new routes inside Wilsonville and
connecting to other cities. Next steps include working to take the plan and translate it to
service and projects.

[Link] Connecting First and Last Mile: Accessing Mobility through Transit Study

Lead agency Partners Timing

Metro TriMet, SMART, Cities, counties, Ride 2024-2025

Connection, other transit providers

Local transit service has long used smaller vehicles that range from vans and shuttles to
small buses with fixed to flexible routes to fill the gap between traditional bus and rail
services, as well as local destinations. An emerging trend in these types of services is
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using ride-hailing and other new technologies to provide on-demand micro transit
services. This study will identify service and coordination gaps specific to the Metro
region, especially for suburban areas of the region and regional parks, document the
range of potential solutions and explore innovative ways to improve transit access and
convenience for users. This work will build upon local planning efforts (e.g., Transit
Development Plans, Statewide Transportation Improvement Fund Plans) and be
completed in close coordination with public transit service providers in the region. The
project will make recommendations carried forward for consideration in the 2027 RTP
update.

[Link] Steel Bridge Transit Bottleneck Study

Lead agency Partners Proposed timing

Metro and TriMet ODOT, city of Portland, 2034-2045

Portland Streetcar, Inc., FTA

This study would explore ways to alleviate transit operational issues caused by the Steel
Bridge. The bridge is a critical link between downtown Portland and the east side of the
greater Portland region for the Blue, Green, Red, and Yellow MAX Lines, as well as for
several bus routes. The 106-year old bridge constrains light rail throughput, requires
frequent maintenance that impacts system-wide light rail reliability and presents
structural risks. The Steel Bridge with its current two-track configuration cannot reliably
accommodate anticipated growth in service.

Metro and TriMet conducted a process to look at alternatives to improve speed, reliability
and on time performance of the MAX lines crossing the Willamette River using the Steel
Bridge. The study looked at a new bridge or a tunnel and concluded that the MAX tunnel
was the most promising. In 2019, Metro and TriMet documented the feasibility and
benefits of the tunnel in the MAX Tunnel Study, examining the feasibility of faster light
rail. In 2019 they examined the feasibility of a new MAX tunnel connecting Lloyd Center
to Goose Hollow stations. The study concluded a new light rail tunnel between Lloyd
Center and Goose Hollow is promising.:

A new light rail tunnel would extend from the vicinity of the Lloyd Center Station to the
Goose Hollow Station, with approximately four underground stations in between. TriMet
would retain some service on the existing surface alignment to continue to serve all
stations. The tunnel would increase system ridership by 7,500 to 15,200 riders and
decrease travel time by approximately 15 minutes between Lloyd Center and Goose
Hollow, while improving system resiliency and redundancy. Planning of a tunnel would
need to evaluate the locations of portals and determine the optimal number and locations
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of stations. Estimated cost is $3 billion to 4.5 billion dollars (construction cost range is
comparable to similar tunnel project completed by Sound Transit and LA Metro,
respectively).

A project of this magnitude could take a decade or more to plan, design and construct,
including the steps necessary to comply with the National Environmental Policy Act
(NEPA) and the Federal Transit Administration’s Project Development process. As we
continue to grow, we will need to look at short term investments to improve the speed,
reliability and on time performance for the travel across the Willamette River.

Max Tunnel benefits Routing MAX through a tunnel under downtown Portland and the
Willamette River would save people time and make MAX as fast as or faster than driving.
This would lead to even greater benefits such as lower car ownership costs, less traffic,
less constrained parking downtown, and reduced greenhouse gas emissions.

For the many people in the region who rely on public transit as their primary
transportation, a light rail tunnel would sustain the MAX service they count on for access
to school, jobs, recreation and other opportunities. Today, average on-time performance
is 87%, higher than just a year ago, but still below the over 90% we can expect with a
tunnel. Train delays average 2 ½ minutes, with one in eight delays lasting between 5 and
8 minutes.

Speed

The MAX tunnel can save over 12 minutes for a trip through the central city. Even people
going to downtown Portland, to places like PSU or Pioneer Square, would save 5 to 6
minutes, depending on where they’re coming from. While the MAX tunnel stations have
yet to be determined, access to downtown destinations will be further enhanced by
surface travel options like bus, streetcar, bikeshare, and a great walking environment.

Resiliency

A MAX tunnel would add a resource to the regional transportation network that would be
resilient to natural disasters and other regional disruptions. A MAX tunnel would offer a
critical link to help the region recover from possible future events.

Capacity

The MAX tunnel will help make sure light rail is there to accommodate growth and for
people even at the busiest times of day. To fit people comfortably in trains over the next
15 years, we anticipate 60 trains crossing between the central city and Rose Quarter
every day—a 50% increase in rail traffic. The MAX tunnel accommodates added service
and maintains capacity on the Steel Bridge.

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[Link] Cascadia Corridor Ultra-High-Speed Ground Transportation Project Planning

Lead agency Partners Proposed

timing

WSDOT Metro, ODOT, PSRC, BC Ministry of Transportation 2023-

and Infrastructure, BC Intergovernmental Relations 2028
Secretariat, TransLink, Cascadia Innovation Corridor

The Cascadia Ultra-High-Speed Ground Transportation (UHSGT) Project is a proposed

high-speed rail system that would connect the Portland, Seattle, and Vancouver, BC
metropolitan areas with speeds up to 250 miles per hour, allowing for travel between
each city in under an hour. Following planning activities (including three prior studies)
conducted by Washington state and its jurisdictional partners over the past six years, the
Governors of Oregon and Washington and the Premier of British Columbia signed a
Memorandum of Understanding to initiate program to advance activities in 2021 to
support forwarding the project. The agreement established the goal of laying the
groundwork for the creation of a formal, legal entity to continue project development
while seeking community engagement and input, gaining critical support from decision
makers, and positioning the corridor for future funding opportunities and an efficient
environmental process. WSDOT has applied for funding for this project under both the
Federal-State Partnership for Intercity Passenger Rail Program and the FRA Corridor
Identification and Development Program with matching funds of $150M. Funding would
support required pre-NEPA technical and advisory study planning requirements to
advance the project to feasibility-level planning decisions. Metro will continue to
represent greater Portland, along with the Oregon Department of Transportation, on the
technical and policy committees supporting planning activities, collaborating for a
process and outcomes consistent with regional goals.

[Link] Equitable Development Strategies

Lead agency Partners Proposed timing

Metro Cities, counties, ODOT, Ongoing
TriMet, SMART, FHWA, FTA,
community organizations

As the Portland region has grown issues such as housing affordability, community and
business displacement and inclusive growth have come to the forefront of the public’s
concern. Metro, in collaboration with local government and community partners, aims to
address these concerns by working to create an Equitable Development Strategy (EDS)

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for each major transit investment corridor where Metro is leading the planning process.
The purpose of the EDS process is to leverage investments in transportation
improvements to support the region’s community development objectives, address
existing inequities, and reduce associated impacts of displacement that can accompany
major investments in public infrastructure.

Each community’s EDS process will be unique, but they all strive to advance measures to
mitigate displacement risks and establish intentional and sustained efforts to generate
equitable development that responds to key challenges in the community. Through a
coalition-building planning process that occurs concurrent to corridor planning efforts,
major public transportation infrastructure investments are paired with community-
identified policy measures and programs with the aim of increasing community and
economic resilience for residents, small businesses and community groups. Research
shows that resilient communities fare better in the face of displacement pressures.

Major public investments in infrastructure need to achieve more than just transportation
goals – communities deserve an investment in high-capacity transit that maintains and
enhances their quality of life, allowing them to thrive in the community they have chosen
to live in. Equitable development helps strengthen and build resilience within
underserved communities by creating more equitable outcomes through collaborative
programs and initiatives.

[Link] Workforce Diversification in Regional Transportation Infrastructure Projects

Lead agency Partners Proposed timing

Metro Cities, counties, ODOT, TriMet, SMART, FHWA, 2024
SW RTC, community organizations, construction
industry

As the Greater Portland Region plans for needed investment in transportation projects,
the region faces a shortage of skilled construction workers which will drive up
construction costs Addressing this challenge presents an opportunity to deliver shared
economic prosperity and advance regional equity goals by expanding access to well-
paying construction jobs for all residents—including women and Black, Indigenous, and
People of Color (BIPOC) workers. A comprehensive regional workforce and contractor
equity strategy would support the Regional Transportation Plan’s infrastructure
investments by growing regional workforce supply, managing costs, creating shared
economic opportunity, and ultimately building a stronger regional economy.

The workforce shortages in the construction industry are driven by two key factors. First,
one in six construction workers are approaching retirement age, meaning the pool of

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workers will dramatically decrease over the next decade. Second, women and BIPOC
workers face significant barriers in accessing jobs and building successful careers in the
construction industry. Diversifying the workforce is a key strategy for addressing
workforce shortages. Creating safer, more accessible job pathways will support all people
in accessing the unique career and wealth building opportunities the construction
industry offers.

The Construction Career Pathways Regional Framework provides a comprehensive

strategy for creating career pathways for women and BIPOC workers in the construction
industry. The framework aims to increase the available skilled workforce while reducing
barriers to entry for historically excluded populations. Metro created the Construction
Career Pathways through an inclusive process in collaboration with 16 public agencies
and with buy-in from a range of stakeholders, workforce advocates, community-based
organizations, contractors, labor partners, and training programs. This broad
collaboration is continuing to support effective implementation across jurisdictions. The
framework has been formally adopted and implemented as policy by nine government
agencies including Metro, Clackamas County, Multnomah County, Washington County,
TriMet, City of Portland, Prosper Portland, Portland Public Schools, and Portland
Community College. 2 Construction Career Pathways paired with strategies to support the
participation and growth of BIPOC, and women owned firms, will provide the skilled labor
needed for transportation infrastructure projects, while advancing regional equity goals.
Given the broad support and on-going collaboration in this effort, there is an opportunity
to explore a more direct connection between Construction Career Pathways and how it
can support the demand for a skilled workforce to support transportation investments.

Prior to the next Regional Transportation Plan update, Metro will work with local,
regional, state partners, community organizations and the construction industry to
explore a strategy for regional implementation of Construction Career Pathways in the
transportation sector. Further analysis should identify the resources and capacity needs

2
On October 24, 2019, Metro Council approved Resolution 19-5028 to approve the Construction Career
Pathways Framework. On November 17, 2020, Clackamas County Board of Commissioners approved to adopt the
Construction Career Pathways Framework. On December 19, 2019, the Multnomah County Board of
Commissioners approved Resolution 219-106 to approve the Construction Career Pathways Framework. On
November 30, 2021, the Washington County Board of Commissioners approved Resolution 21-131 to adopt the
Construction Career Pathways Framework. On January 15, 2020, City Council approved Resolution 37474,
authorizing the Chief Procurement Officer to sign the Construction Career Pathways Project Framework and
committing the City to continue to support the regional workgroup led by Metro. On April 7, 2023, TriMet
submitted a letter to Metro communicating their support and commitment to Construction Career Pathways
Framework. On October 9, 2019, Prosper Portland adopted Resolution 7344 to approve the Construction Career
Pathways Framework. On February 4, 2020, Portland Public Schools approved Resolution 6050 to adopt the
Construction Career Pathways Framework. On August 31, 2021, Portland Community College submitted a letter
to Metro outlining their commitment to adopt the Construction Career Pathways Framework.

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of partner agencies and industry and assess the benefits of collaboration in this effort to
facilitate implementation. If adopted regionally, Construction Career Pathways has the
potential to increase shared economic prosperity, reduce workforce shortages and
increased construction costs, ensure timely deliveries on community projects, and
support job access for historically underrepresented workers in the region.

[Link] Funding Strategy for Regional Bridges

Lead agency Partners Proposed timing

Counties Cities, Metro, ODOT, TriMet 2024-28

Given the declining purchasing power of the gas tax and the rise of electric vehicle use, the
region continues to struggle with a long-term funding strategy for maintaining Willamette
River bridges that serve regional travel. Currently, Multnomah County has primary
responsibility for five of the eleven bridges within the Metropolitan Planning Area (see
table 8.3 below) with insufficient funding to pay for all expected future maintenance of
these structures.

Table 8.3 Willamette River Bridges in the Metropolitan Planning Area

Bridge Name Bridge Owner

Broadway Bridge Multnomah County
Burnside Bridge Multnomah County
Morrison Bridge Multnomah County
Hawthorne Bridge Multnomah County
Sellwood Bridge Multnomah County
St Johns Bridge ODOT
Fremont Bridge ODOT
Marquam Bridge ODOT
Ross Island Bridge ODOT
Tilikum Crossing Bridge TriMet
Steel Bridge Union Pacific Railroad

Within 20 years, four of Multnomah County’s five Willamette River Bridges will be 100
years old. The Burnside Bridge is anticipated to be replaced by 2030. The county’s capital
program for the remaining three bridges (Broadway Bridge, Hawthorne Bridge, and
Morrison Bridge) is estimated to cost $790 million, yet only $332 million in federal, state
and county revenues has been identified in revenue forecasting through 2045. ODOT
owns four of the bridges, including the Fremont and Marquam interstate bridges, as well
as the St. Johns and Ross Island regional crossings. ODOT has identified [placeholder for
estimated cost]. Union Pacific Railroad owns the Steel Bridge, which is also due for
significant maintenance, with costs to be determined. TriMet owns the Tilikum Crossing

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structure, and while it was recently constructed, it will eventually require maintenance, as
well, as the region's bridges face maintenance challenges that come from age and use.

More collaboration and work is needed to develop a financial plan for ensuring ongoing
operations and maintenance and other transportation needs of Willamette River bridges,
given the importance to the regional economy, emergency response and climate
resilience.

[Link] Emergency Transportation Routes Project Phase 2

Lead agency Partners Proposed timing

Metro and Regional Cities, counties, TriMet, 2024-26
Disaster Preparedness SMART, ODOT, DOGAMI,
Organization (RPDO) WASHDOT, SW RTC, REMTEC

Natural disasters can happen anytime, and the transportation system needs to be
prepared to withstand them and to facilitate life-saving and life-sustaining activities,
including the transport of first responders (e.g., police, fire and emergency medical
services), fuel, essential supplies, and patients.

The Emergency Transportation Routes Project is a collaborative effort between public,

private and non-profit stakeholders, co-led by the five-county, bi-state Regional Disaster
Preparedness Organization (RDPO) and Metro to improve the safety and resiliency of the
region’s transportation system to natural disasters, extreme weather events and climate
change.

From 2019 - 2021 the RDPO and Metro partnered to complete phase 1 of the project -
updating the designated Regional Emergency Transportation Routes (RETRs) for the five-
county Portland-Vancouver metropolitan region, which includes Clackamas, Columbia,
Multnomah and Washington counties in Oregon and Clark County in Washington. The
routes had not been updated since 2006. The updated routes are shown within the
Climate Action and Resilience section in Chapter 3 of the RTP.

A second phase of follow-on work is proposed for 2024-2026 to further prioritize/tier the
updated routes and develop operational guidance for route owners/operators. For more
information on RETRs, please visit [Link]

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[Link] Regional Freight Rail Study

Lead agency Partners Proposed timing

Metro Cities, counties, ODOT, WSDOT, Port 2024-26
of Vancouver and Port of Portland

Identified in the Regional Freight Strategy, this study would seek to identify and produce
increases in rail capacity, safety, land use compatibility and operational efficiencies to
support freight and goods movement in the region which is important to our long-term
economic and environmental sustainability, and will help to maintain the region's
competitive advantage in a global marketplace. The RTP and Regional Freight Strategy
also note freight rail bottlenecks impacting critical access the region’s ports and
intermodal facilities, as well as the need for rail to efficiently carry its full share of existing
and future commodities.

Potential outcomes of the study include:

• Identification of economically viable opportunities to develop short line intermodal
hubs or logistics parks or other cargo-oriented development.
• A strategy to identify, develop and position top projects for confirmed and potential
future federal and state funding, as appropriate, including:
o An updated list of regional freight rail project priorities focused on improving
capacity constraints and targeting industrial access to the rail networks.
o A strategy to fund regional freight/passenger rail bottlenecks.
o A strategy to fund needed grade separations.
o A strategy to fund critical modernization projects on the short rail lines.

The study will address the balance between passenger and freight rail goals, and a set of
viable solutions and initiatives to meet these goals; including:
• Regional guidance for public/private investment partnerships to guide investment of
regional and national funding sources in identifying and developing freight rail
corridors of local, regional and national significance; and
• Specific guidance for local jurisdictions as they develop their transportation system
plans (TSPs), in order to avoid or minimize conflicts between freight rail and other
transportation modes and preserve or enhance the functionality of rail facilities and
connected industrial land uses.

The Regional Freight Rail Study will work with Union Pacific (class 1 rail operator), ODOT,
Port of Portland, Portland Bureau of Transportation (PBOT), and other local jurisdictions

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to determine which at-grade railroad crossings of the Union Pacific Kenton line, and other
at-grade rail crossings should be grade separated.

[Link] Regional Transportation Functional Plan Update

Lead agency Partners Proposed timing

Metro Cities, counties, ODOT, 2024-25
DLCD, TriMet, SMART

Since the adoption of the 2040 Growth Concept in 1995, cities and counties across the
region have updated their comprehensive plans, development regulations and
transportation system plans to implement the 2040 Growth Concept in locally tailored
ways. The RTP provides a long-range blueprint for implementing the transportation
element of the 2040 Growth Concept and presents the overarching vision, policies and
goals, system concepts for all modes of travel and strategies for funding and local
implementation for the region. Projects submitted to the RTP are from adopted local,
regional or state planning efforts that provided opportunities for public input. Cities and
counties are responsible for creating transportation system plans that are periodically
updated to stay consistent with the RTP and reflect local transportation priorities and
needs. Each city and county develops its own process for engaging the public in the
development of the plans.

Most communities throughout the region have an adopted transportation system plan
that serves as the transportation element of a comprehensive plan consistent with the
Regional Transportation Functional Plan (RTFP). The functional plan implements the
goals, objectives and the policies of the RTP and its constituent strategies, including the
Climate Smart Strategy and strategies for safety, freight, transit, transportation system
management and operations, regional travel options and emerging technology.

Under state law, the RTFP directs cities and counties within the metropolitan planning
area boundary as to how to implement the RTP through local transportation system plans
and associated land use regulations and transportation project development. Local
implementation of the RTP will result in a more comprehensive approach for
implementing the 2040 Growth Concept, help communities achieve their aspirations for
growth and support current and future efforts to achieve the goals objectives and policies
of the RTP.

The RTFP was last updated in 2012. A comprehensive review and update is needed to:
• modernize the functional plan language to be inclusive and in plain writing;
• make miscellaneous technical corrections and clarifications, such as outdated
references to maps and figures;

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• ensure the functional plan language and provisions are consistent with and
adequately reflect new and updated goals, objectives and policies adopted in the RTP
since 2014, including safety, equity, climate, pricing, mobility, freight transit,
transportation system management and operations, and transportation options /
transportation demand management;
• align the functional plan language and provisions with recent statewide rulemaking
and policy development to implement the Climate-Friendly and Equitable
Communities Program, including modal system planning, multimodal inventories,
transportation performance, project prioritization, parking management, reporting;
and
• update the timeline for local TSPs updates in collaboration with cities, counties and
the ODOT Transportation System Plan Funding Program.

[Link] 2040 Refresh Coordination

Lead agency Partners Proposed timing

Metro Cities, counties, ODOT TBD

Note: 2040 Refresh Coordination is awaiting further direction from Metro Council
(anticipated in Fall 2023). The description below was carried over from the 2018 RTP.

In 2018, Metro's Chief Operating Officer recommended that Metro’s Planning and
Development staff return to the Metro Council in early 2019 with a proposed work
program for updating the 2040 Growth Concept as part of the COO recommendation to
the Metro Council on the 2018 Urban Growth Management Decision.

Green corridor implementation will be forwarded for consideration as part of this future
planning effort. Green corridors were adopted as part of the 2040 Growth Concept in
1995. The purpose of green corridors is to prevent unintended urban development along
these often heavily traveled routes, and maintain the sense of separation that exists
between neighbor cities and the greater Portland region. The green corridor concept calls
for a combination of access management and physical improvements to limit the effects of
urban travel on the routes on adjacent rural activities. Following adoption of the 2040
Growth Concept, Metro worked with the cities of North Plains, Canby and Sandy from
1998-2000 to develop intergovernmental agreements (IGAs) but did not formalize these
agreements. This remains as an outstanding issue in fully implementing the Growth
Concept.

In 2010 and 2011, the elected governing bodies of Clackamas, Multnomah and
Washington counties and Metro entered into agreements that determine the location and
scale of urban development for the future. These agreements were the result of a two-
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 year region-wide planning effort that identified areas for future urban use and other areas
that should remain rural for the next 40 to 50 years. The urban and rural reserve decision
provided a more certain framework for transportation improvements along the urban
edge. Metro will work with interested local jurisdictions to complete IGAs for green
corridors that reflect updated plans for urban and rural reserves.

[Link] Columbia Connects

Lead agency Partners Proposed timing

Oregon Metro and Greater Portland Inc, Columbia 2023-24
Southwest Washington River Economic Development
Regional Transportation Council, City of Portland, City of
Council Gresham, City of Vancouver, Port
of Portland, Port of Vancouver

Columbia Connects is a regional project intended to strengthen the bi-state partnership

between Oregon and Washington. Centered around the ecosystem of industries and work-
sheds that are interconnected by the Columbia River, the project seeks to develop a clear
understanding of the conditions within this sub-district; the shared economic and
community values of the region; and the strategies, projects, and programs needed to
achieve desired outcomes. Columbia Connects provides a Shared Investment Strategy that
outlines specific opportunities for investment based on feasibility, effectiveness, equity,
and input from project champions. Convened by Metro and RTC, the partners will finalize
and carry out actions included in a Shared Investment Strategy, continuing to partner
across state boundaries to establish agreements and commitments for implementation
and ongoing coordination on resource acquisition.

8.2.4 Corridor Refinement Planning

Note - Section 8.24 will be further updated this Summer and informed by analysis of the RTP
project list using the newly updated regional mobility policy.

This section identifies areas in the region – called mobility corridors - that are
recommended for more detailed refinement planning to identify multimodal investment
strategies adequate to serve regional transportation needs in the corridor.

This RTP calls for an update to the region’s mobility policy and related performance
targets beginning in 2019 and is expected to affect corridor refinement planning
identified in this section. Many of the areas identified for refinement planning in the RTP
are identified because they do not meet the newly updated regional mobility policy.
Individual corridor refinement planning descriptions have been updated to reflect work
remaining and are being carried forward in this RTP.

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Corridor Refinement Planning and the Transportation Planning Rule

Corridor refinement planning is a response to the Oregon Transportation Planning Rule

(TPR). Section 660-012-0020 of the TPR requires that transportation system plans (TSPs)
establish a coordinated network of planned transportation facilities adequate to serve
regional transportation needs. The RTP is the region’s TSP. Section 660-012-0025 of the
TPR allows jurisdictions to defer decisions regarding mode, function, and general location
of improvements to address identified needs as long as it can be demonstrated that the
refinement effort will be completed in the near future.

A corridor refinement plan must identify the capital and operational improvements that a
mobility corridor needs consistent with the region’s congestion management process.
This is particularly critical for planning efforts that may result in significant expansion of
roadways beyond the planned system. A CMP analysis is required for capacity-increasing
projects that go beyond the planned RTP system before federal funds may be applied. For
such projects, the CMP looks at road expansions beyond the planned system as a last
resort and, as appropriate, requires that they be coupled with complementary operational
and travel demand management strategies.

In the Portland region, in order to stay consistent with our regional transportation and
land use goals, our corridor refinement process includes a multimodal look at
transportation needs, as well as a review of existing and planned land use and projected
growth. See Section 8.5.4 and Appendix L for more information about the region’s CMP.

A corridor refinement plan includes the following steps:

1. Develop MOU or IGA for refinement plan scope of work that includes identification of
roles and responsibilities, methods of collaboration and consultation with Metro, if the
refinement planning work is not led by Metro.
2. Conduct analysis that considers current and planned local land uses, regional and
community goals for equity, housing, economic opportunity, environmental protection
and stormwater management as well as safety, pedestrian, bike, system and demand
management and operational strategies, freight, throughway, road and transit needs
and previously identified solutions.
3. Agree on corridor specific multimodal performance measures.
4. Evaluate multimodal performance and potential impact on regional and community
goals for equity, economic development and environmental protection and, if
applicable, apply HCT system expansion assessment and readiness criteria.
5. Develop alternative mobility or other performance standards, if necessary.

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6. Determine mix and phasing of projects and/or land use changes needed to
address identified needs.
7. Prepare local, regional and/or state plan amendments and MOU or IGA to
implement refinement plan recommendations at state, regional and local levels.

Consistent with the region’s congestion management process, corridor refinement plans
will provide decision-makers with more comprehensive information regarding safety,
accessibility, environmental impact, mobility, reliability and congestion as they relate to
the movement of persons and goods in the mobility corridor. They should also consider
land use, economic opportunity, equity, travel demand and system management, street
connectivity, walking and biking solutions in addition to increasing transit and road
capacity. The corridor refinement plan will recommend a wide range of strategies and
projects to be implemented at the local, regional and/or state levels.

Individual project and program solutions identified in the RTP may move forward to
project development at the discretion of the facility owner/operator. Planning and project
development efforts should be conducted with an understanding of the corridor
refinement planning anticipated in the RTP and not preclude any strategies or potential
solutions identified for consideration in the corridor refinement plan. The MOU or IGA
from a corridor refinement plan is intended to provide more accountability and to
formalize agreements across implementing jurisdictions on moving forward to implement
the corridor refinement plan recommendations. This is particularly important in mobility
corridors with multiple jurisdictions.

Figure 8.2 shows the framework for how the mobility corridor strategy will be
incorporated into the RTP or developed through a corridor refinement plan.

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Figure 8.2 How A Mobility Corridor Strategy Is Developed and Implemented

Mobility Corridors Recommended for Future Corridor Refinement Plans

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Note – This section will be further updated this Summer and informed by analysis of the RTP
project list using the newly updated regional mobility policy.

The main objective of the RTP mobility corridor framework is to organize information
needed to help define the need, mode, function, performance standards, and general
location of facilities within each mobility corridor consistent with the Transportation
Planning Rule to ensure land use and transportation planning and decision-making are
integrated. The needs assessment was developed based on the RTP policy framework and
guided the identification of projects and programs during development of the RTP.

Under the mobility corridor framework, when determinations of need(s), mode(s),

function(s), and general location(s) of solutions cannot be made, the mobility corridor
needs a refinement plan. Corridor refinement plans are intended to be multimodal
evaluations of possible land use and transportation solutions to address identified needs
and develop a shared investment strategy, consistent with RTP goals, objectives and
policies. This includes conducting an evaluation that considers the potential impact on
regional and community goals for equity, housing, economic development, environmental
protection and access to nature.

The RTP has identified a list of mobility corridors that do not meet the outcomes-based
performance standards of the RTP and/or do not fully answer questions of mode, function
and general location. These corridors need refinement planning and are listed in Table
8.4. The corridors are not listed in priority order. In addition, potential high capacity
transit corridors identified in the Regional Transit Strategy are likely to require corridor
refinement plans to develop shared land use and transportation investment strategies
and determine transit mode, function, general location and any associated changes in
road or freight rail functions and performance standards of existing transportation
facilities.

Table 8.4 Mobility Corridors Recommended for Future Corridor Refinement Planning

Regional Mobility Corridor General Geographic Scope of Mobility Corridor

Mobility Corridors #3 Tigard to Wilsonville which includes I-5 South 3
Mobility Corridor #4 Portland Central City Loop, which includes I-5/I-405 Loop
Mobility Corridors #7, #8 and Clark County to I-5 via Gateway, Oregon City and
#10 Tualatin, which includes I-205
Mobility Corridor #14 and #15 Beaverton to Forest Grove, which includes Tualatin
Valley Highway
Mobility Corridors #13, #14 Hillsboro to Portland, which includes US 26

3
In coordination with project development activities for Mobility Corridor #10.

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Mobility Corridors #19 and #20 Portland Central City to Lents and Lents to Gresham,
which includes US 26/Powell Boulevard

Figure 8.3 Illustrative Map of Mobility Corridors in the Portland Metropolitan Region

Corridor refinement plans that have been completed since 2018

• Clackamas to Columbia Corridor Plan (Gresham/Fairview/Wood Village/Troutdale to
Damascus – Mobility Corridor #24)

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Figure 8.4 Regional Mobility Corridors Recommended for Future Refinement Planning

Note: This map will be updated for following adoption of the RTP

[Link] Tigard to Wilsonville (Mobility Corridor 3)

Note – This section will be further updated this Summer and informed by analysis of the RTP
project list using the newly updated regional mobility policy.

This mobility corridor provides the major southern access to and from the central city.
The corridor also provides important freight access, where Willamette Valley traffic
enters the region at the Wilsonville “gateway,” and provides access to Washington County
via OR 217.

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In 2002, a joint ODOT and Wilsonville study 4 concluded that in 2030 widening of I-5 to
eight lanes would be required to meet Oregon Highway Plan and RTP mobility standards,
and that freeway access capacity would not be adequate with an improved I-
5/Wilsonville Road interchange. The appropriate improvements in this corridor are
unclear at this time. However, I-5 serves as a critical gateway for regional travel and
commerce, and an acceptable transportation strategy in this corridor has statewide
significance. Projections for I-5 indicate that growth in traffic between the Metro region
and the Willamette Valley will account for as much as 80 percent of the traffic volume
along the southern portion of I-5, in the Tualatin and Wilsonville area.

In 2009, ODOT and the City collaborated to plan the reconstruction of the I-5: Wilsonville
Road interchange, including infrastructure improvements and management strategies to
better serve planned growth in the area. Since adoption of the interchange area
management plan, ODOT completed the interchange reconstruction and implemented the
bulk of the management plan’s recommendations. More recent projects include the City’s
addition of a third lane to the Wilsonville Road southbound on-ramp and improvements
at the Elligsen Road northbound on-ramp. In addition, ODOT constructed a single
southbound auxiliary lane on I-5 from north of Lower Boones Ferry Road to Nyberg Road
and from South of Nyberg Road to I-205 and a second lane at the northbound exit ramp
for Lower Boones Ferry Road to relieve congestion and reduce crashes. The auxiliary lane
work included on- and off-ramp lane modifications at Lower Boones Ferry Road and
Nyberg Street.

The Washington County Transportation Futures Study, completed in 2017, recommended

completion of this corridor refinement plan to address growing transportation needs in
the corridor. The Washington County Freight Study, also completed in 2017, identified the
I-5 corridor as a key area of freight operational delay and unreliability and underscored
the importance of developing and funding improvements in this area.

In 2017-2018, ODOT and the City of Wilsonville partnered on a Southbound I-5 Boone
Bridge Congestion Study. They evaluated and developed solutions for a southbound
bottleneck in the bridge area, in order to manage congestion and reliability for private
vehicles, freight, and transit in the evening peak. This geographically focused study was
timed to identify operational improvements in advance of upcoming seismic replacement
of the Boone Bridge, so that they could proceed as one project and allow the state to
reduce total costs. The study led to the adoption of the I-5 Wilsonville Facility Plan, which
documented a southbound auxiliary lane concept consistent with implementation
recommendations for this corridor (see Project 11990 on the 2023 RTP Financially

4
I-5/Wilsonville Freeway Access Study, DKS Associates, November 2002

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Constrained List). It did not preclude a larger I-5 south corridor refinement plan, and
many of the broader multimodal needs in this corridor still need to be addressed.

A corridor refinement plan is proposed to address the following in coordination with

project development activities for Mobility Corridor #10:
• Effects of widening I-205 on the I-5 South corridor;
• Effects of the I-5 to 99W Connector study recommendations on I-5 and the N.
Wilsonville interchange and the resultant need for increased freeway access to
preserve local system performance and in-line capacity for I-5 mobility;
• Effects of peak period and mid-day congestion in this area and mitigation options for
regional freight reliability, mobility and travel patterns;
• Ability of inter-city transit service, to/from neighboring cities in the Willamette Valley,
including commuter rail, to slow traffic growth in the I-5 corridor;
• Ability to maintain off-peak freight mobility with capacity improvements;
• Potential for better coordination between the Metro region and Willamette Valley
jurisdictions on land-use policies;
• Effects of a planned long-term strategy for managing increased travel along I-5 in the
Willamette Valley;
• Effects of UGB expansion and Industrial Lands Evaluation studies on regional freight
mobility;
• Effects on freight mobility and local circulation due to diminished freeway access
capacity in the I-5/Wilsonville corridor;
• Identify and implement safety and modernization improvements to I-5 defined by the
Tigard to Wilsonville Corridor Refinement Plan;
• I-5/OR217 Interchange Phase 2: SB OR217/Kruse Way Exit – Complete interchange
reconstruction: Braid SB OR 217 exit to I-5 with Kruse Way exit;
• I-5/OR217 Interchange Phase 3: SB OR217 to I-5 NB Flyover Ramp – Complete
interchange reconstruction with new SB OR217 to NB I-5 flyover ramp;
• Effects of the new and proposed auxiliary (ramp-to-ramp) lanes;
• Effects of future Southwest Corridor LRT;
• Identify and implement active transportation priorities that provide safe alternatives
to vehicle travel; and

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• Consideration of how land use interfaces with the transportation needs and impacts,
local system enhancements and new connections, and improved transit network and
service and potential outcomes.

In addition, the following design elements should be considered as part of the corridor
refinement plan:
• Congestion pricing, including consideration of the Regional Mobility Pricing Project,
and HOV lanes for expanded capacity;
• Operational bus on shoulder treatments
• Provide regional transit service, connecting Wilsonville and Tualatin to the central
city;
• Increase WES service frequency and hours/days of operation;
• Provide additional freeway access improvements in the I-5/Wilsonville corridor to
improve freight mobility and local circulation;
• Add capacity to parallel arterial routes, including 72nd Avenue, Boones Ferry, Lower
Boones Ferry and Carman Drive;
• Add overcrossings in vicinity of Tigard Triangle, City of Tualatin and City of
Wilsonville to improve local circulation;
• Extend commuter rail service from Salem to the Portland Central City, Tualatin transit
center and Milwaukie, primarily along existing heavy rail tracks;
• Additional I-5 mainline capacity;
• Provision of auxiliary lanes between all I-5 freeway on- and off-ramps in Tualatin
south of the I-5/I-205 split and in Wilsonville; and
• Complete gaps in the Fanno Creek and Ice Age Tonquin Regional Trails to provide a
continuous off-street active transportation route through the length of the mobility
corridor.

[Link] Portland Central City Loop (Mobility Corridor 4)

Context

Note – This section will be further updated this Summer and informed by analysis of the RTP
project list using the newly updated regional mobility policy.

In 2005, the I-5/405 Freeway Loop Advisory Group (FLAG) completed its review of the
near- and long-term transportation, land use, and urban design issues regarding the I-
5/405 Freeway Loop. Appointed by Mayor Vera Katz and the ODOT Director in 2003, the

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24-member group developed and evaluated concepts to address identified transportation
issues and needs. The concepts represented a range of options that included modest
improvements within existing right-of-way, a One-Way Loop System, and a full tunnel
that would connect the Freeway Loop to I-84 and Sunset Highway. The three concepts
were evaluated against the region’s proposed transportation system, along with projected
employment and household growth, for the year 2030.

In completing its initial review, FLAG found that additional master planning work is
needed to identify, prioritize and fund specific projects, and that short-term or interim
investments should move forward while the master planning work is being completed.
FLAG recommended that planning on I-84/I-5 interchange and the I-5 elements of South
Portland Plan contemplated in the area of the interchange of I-405 and I-5 may proceed
independent of the Master Plan with the understanding that the final plan for any such
project would be consistent with the Master Plan. In addition, the study recommended
advancing a corridor refinement plan to begin to identify short-term and long-term
investments and a recommended scope, problem statement and set of principles:

Scope
• Develop an overall Freeway Loop Corridor Refinement Plan that will guide public
investment for improvements to the I-5/405 Freeway Loop.
• Develop a phasing strategy for implementation of the Master Plan. Include the
currently approved Regional Transportation Plan improvements as well as new
elements.
• Identify and pursue a funding strategy.

As directed by the FLAG’s recommendations, planning proceeded on the I-84/I-5 section

of the Loop under the N/NE Quadrant and the I-5 Broadway-Weidler Interchange
Improvement Planning process. The key recommendations from the adopted 2012 N/NE
Quadrant Plan include:
• Preserving and enhancing Lower Albina by protecting the working harbor and
increasing land use flexibility that promotes a mix of uses on historic Russell Street
and greater employment densities;
• Protecting historic neighborhoods and cultural resources;
• Concentrating high density development in the Lloyd District, with a focus on new
residential development that will add activity and vibrancy to the district;
• Providing amenities, such as parks, street improvements and green infrastructure to
support and encourage new development;
• Improving regional access and local street safety and connectivity for all modes;
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• Encouraging sustainable development that supports the Lloyd EcoDistrict and goals
for improved environmental health;
• Future changes to zoning and building height regulations that implement the plan
goals.

Key recommendations for the I-5 Broadway-Weidler Plan include:

• Adding auxiliary lanes and full-width shoulders to improve traffic weaves and allow
disabled vehicles to move out of traffic lanes;
• Rebuilding structures at Broadway, Weidler, Vancouver and Williams and adding a lid
over the freeway that will simplify construction, increase development potential and
improve the urban environment;
• Moving the I-5 southbound on-ramp to Weidler to improve circulation and safety;
• Improving conditions for pedestrian and bicycle travel by adding new connections
over the freeway and safer pedestrian and bicycle facilities in the interchange area.

The recommendations of the N/NE Quadrant Plan were incorporated in the recently
adopted Central City 2035. In addition, as part of the plan, ODOT and the City worked to
designate the Central City as a Multimodal Mixed-Use Area (MMA). MMAs are State
acknowledged high density, mixed use areas that are well served by multimodal
transportation. MMA areas are exempt from mobility standards as part of land use
amendments (safety and other State mandated policies remain in effect). In development
of the MMA, the City and ODOT worked to identify safety improvements for the Loop
(including the I-5 Broadway/Weidler Project), which were subsequently added to the
City’s list of TSP projects and submitted to Metro as part of the 2018 RTP.

Proposed Mobility Corridor Purpose Statement

The purpose of the study is to develop alternative design concepts for Portland Central
City Loop. Improvements to the I-5/4-5 Freeway Loop must address long-term
transportation and land use needs in a system-wide context. Because the movement of
people and goods is a vital economic function, changes must be considered in relation to
local, regional, and statewide geographies. Freeway Loop improvements should enhance,
not inhibit, high-quality urban development, and should function as seamless and integral
parts of the community.

Proposed Principles

These objectives will guide the selection and evaluation of options in the next phase:

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• Maintain or enhance transportation performance, including safe and reliable highway
operations and enhanced transit performance.
• Support a multi-modal strategy for automobiles, transit, trucks, bicycles, and
pedestrians.
• Support trade and freight movement to facilitate regional and state economic
development.
• Support local, regional, and state land use plans.
• Ensure regional accessibility to and from the Central City to reinforce its significant
statewide, regional, and national economic role.
• Support economic activities and new investments in the Central City and in adjacent
industrial areas.
• Improve the quality of the built environment and multimodal connections across
facilities.
• Avoid or minimize negative impacts on the natural and built environments.
• Evaluate facility improvement costs relative to the distribution of benefits and
impacts.
• Develop strategies that can be implemented in phases, including consideration of
congestion pricing such as that identified in the Regional Mobility Pricing Project.

[Link] Clark County to I-5 via Gateway, Oregon City and Tualatin (Mobility Corridors 7, 8
and 10)

Note – This section will be further updated this Summer and informed by analysis of the RTP
project list using the newly updated regional mobility policy.

Improvements are needed in this corridor to address existing deficiencies and expected
growth in travel demand in Clark, Multnomah and Clackamas counties. Transportation
solutions in this corridor should address the following needs and opportunities:
• Provide for some peak period and off-peak mobility and reliability for longer trips;
• Preserve freight mobility from I-5 to Clark County, with an emphasis on connections
to Highway 213, Highway 224 and Sunrise Corridor;
• Maintain an acceptable level of access to the Oregon City, Clackamas and Gateway
regional centers and Sunrise industrial area;
• Maintain acceptable levels of access to PDX, including air cargo access;
• Coordinate refinement planning activities with planning for the Stafford area;

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• Adding general purpose lanes to I-205 should be considered to meet state and
regional policies to bring the freeway up to three through lanes in each direction in
the southern section from Oregon City to I-5 and to allow for potential of bus-on-
shoulder operations for bypassing of traffic queues on I-205 during periods of
congestion;
• Expanded transit service in the corridor including provision of I-205 express bus
service between Clackamas regional center and Bridgeport in Tualatin, and frequent
bus service between Clackamas regional center and Clackamas Community College via
downtown Oregon City;
• Extend high capacity transit service from Milwaukie to Oregon City along McLoughlin
Boulevard;
• Complete gaps in the I-205 Multi-use path - including southernmost segment from
Oregon City to Tualatin - to provide a continuous off-street active transportation route
through the length of the mobility corridor; and
• Interchange improvements, auxiliary lanes and other major operational
improvements such as ramp improvements and other weaving area improvements in
the corridor should also be considered. Specific projects to be considered to meet
identified needs include:
o Southbound truck climbing lanes from Willamette River to 10th St.
interchange;
o Interchange improvements at locations including: Division/Powell, Airport
Way, OR213, OR 212/224, Sunrise, Johnson Creek Boulevard and others;
o Auxiliary lanes, northbound and southbound in the following locations: Airport
Way to Columbia Blvd., Columbia Blvd. to I-84, I-84 to Glisan, Glisan to
Division/Powell, Division/Powell to Foster, Foster to Johnson Creek Boulevard,
OR 212/224 to Gladstone, Gladstone to OR 99E;
o Widen to 6 lanes from Stafford Interchange to Willamette River;
o Widen Abernethy Bridge to 6 lanes plus auxiliary lanes;
o Improvements needed on OR 213 (82nd Avenue) include bicycle/pedestrian
and streetscape improvements.
o Implement tolling on I-205 between Stafford Road and the Abernathy Bridge.

Potential transportation and land use solutions in this corridor should evaluate the
potential of the following design concepts:
• Auxiliary lanes added from Airport Way to I-84 East;

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• Consider express HOV lanes as a strategy for expanding capacity;
• Relative value of specific ramp, overcrossing and parallel route improvements;
• Evaluate crash history of arterials and throughways in study area, with a focus on fatal
and serious injury crashes, to inform potential transportation solutions and phasing;
• Eastbound HOV lane from I-5 to the Oregon City Bridge;
• Truck climbing lane south of Oregon City;
• Potential for inter-city transit service, vanpool services and other travel options,
to/from rural areas and neighboring cities in Clackamas County, to expand travel
options and slow traffic growth in the I-205 corridor;
• Potential for rapid bus transit service or light rail from Oregon City to Gateway;
• Potential for extension of rapid bus service or light rail north from Gateway into Clark
County;
• Potential for refinements to 2040 land-use assumptions in this area to expand
potential employment in the sub-area and improve jobs/housing imbalance;
• Potential for re-evaluating the suitability of the Beavercreek area for urban growth
boundary expansion, based on ability to serve the area with adequate regional
transportation infrastructure;
• Explore opportunities to support economic and land use goals with the Columbia
Connections Strategy;
• Provide recommendations to the Bi-State Coordination Committee prior to JPACT and
Metro Council consideration of projects that have bi-state significance.

[Link] Beaverton to Forest Grove (Mobility Corridors 14 and 15)

Note – This section will be further updated this Summer and informed by analysis of the RTP
project list using the newly updated regional mobility policy.

A number of improvements are needed in this corridor to address existing deficiencies

and serve increased travel demand. One primary function of this route is to provide
access to and between the Beaverton and Hillsboro regional centers. Tualatin Valley
Highway also serves as an access route to Highway 217 from points west along the
Tualatin Valley Highway corridor. As such, the corridor is defined as extending from
Highway 217 on the east to Forest Grove to the west, and from Farmington Road on the
south to Baseline Road to the north.

The Tualatin Valley Highway Corridor Plan (TVCP) is a “mobility corridor refinement”
plan completed in June 2013. The TVCP studied the Beaverton to Hillsboro portion of the
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Beaverton to Forest Grove mobility corridor between Cedar Hills Boulevard (Beaverton
Regional Center) and SE 10th Avenue/Maple Street (Hillsboro Regional Center). The
northern boundary of the study area was Baseline Road/Jenkins road and the southern
boundary was Farmington Road, Oak Street, Davis Street and Allen Boulevard. There are
still two outstanding sections of the corridor left to be studied: within Beaverton (OR 217
to SW Cedar Hills Blvd) and from Hillsboro (west of SE 10th Avenue/Maple Street) to
Forest Grove.

The TVCP was a joint effort between ODOT, Metro, the City of Hillsboro, the City of
Beaverton and Washington County that focused an examination of the transportation
system to identify needs and improvements for all modes of transportation. A number of
improvements have been identified in this corridor to address existing deficiencies and
safety concerns and serve increased travel demand.

The TV Trail Concept Plan, a TGM funded plan by Washington County describes the
selection of the two preferred near- and long-term opportunities to serve local and
regional trail connectivity between SW 160th Avenue and Cornelius Pass Road.

The East Forest Grove Safety Action Plan examined the portion of OR 8 between Forest
Grove and Cornelius. The plan identified multi-modal improvements to address safety
along this section of the corridor.

A long‐term transit solution for Tualatin Valley Highway has yet to be identified. In
advance of this transit study additional land area is to be preserved for Business Access
Transit (BAT) / High Capacity Transit (HCT) uses. This land area is not intended to be
used for general purpose through lanes. Development along Tualatin Valley Highway shall
consider opportunities so as to not preclude a future Business Access and Transit lane in
the westbound direction, and to not preclude Bus pullouts in the eastbound direction.

RTP Design and Functional Classifications.

Early in the project, the TVCP PG gave policy direction to maintain the design and function
of TV Hwy as an urban arterial that will not exceed motorized vehicle capacity of two
through travel lanes in each direction. Consistent with this decision, proposed actions
along TV Hwy will be developed during subsequent refinement planning and design work
to maximize the use of the typical 100 feet to 107 feet of existing right-of-way (ROW) to
serve multimodal travel. Additionally, the RTP Arterial & Throughway map and System
Design Classification maps are amended. TV Highway will be changed from “Principal
arterial” to “Major Arterial” on the Arterial & Throughway map. It will be changed from
“Throughway” to “Regional Street” on the System Design map.

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The TVCP recommendations fall into 3 categories: 1) Near Term Actions, 2) Opportunistic
Actions, and 3) Longer Term Refinement Planning Needs.

Near Term Actions

The proposed improvements described below will address existing needs, including
multimodal system completeness and safety, and can reasonably be expected to be
completed within the next 15 years with a strong commitment from one or more of the
partner agencies that have jurisdiction over subject transportation facilities, including:
• Complete detailed multi‐agency study to determine future potential for high capacity
transit solutions within the Tualatin Valley Highway corridor;
• The Moving Forward TV Highway Plan will be developed as a multi-agency study that
determine nature and feasibility of HCT in the Tualatin Valley Highway corridor
between SW 160th Ave and Cornelius Pass Road;
• Multi-modal safety improvements from the East Forest Grove Safety Action Plan
• Improve bus stops along Tualatin Valley Highway;
• More frequent bus service;
• Add street lighting on Tualatin Valley Highway;
• Improve Tualatin Valley Highway pedestrian crossings;
• Complete Planning and Conceptual design for a Multi‐use path;
• Fill gaps in sidewalks and add landscape buffers along Tualatin Valley Highway;
• Add directional way finding signs;
• Complete the (currently discontinuous and narrow) bike lanes on Tualatin Valley
Highway;
• Improve bike crossings of Tualatin Valley Highway;
• Develop continuous east‐west parallel bike routes north and south of Tualatin Valley
Highway;
• Public community rail safety education;
• Support and promote employer incentive programs to reduce driving;
• Improve signal timing, transit prioritization and traffic operations monitoring;
• Signal prioritization for transit;
• Adaptive signal control (“smart signals” that adjust timing to congestion levels);
• Improve operations at signalized intersections along Tualatin Valley Highway;
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• Intersection modification to address safety and mobility; and
• Left‐turn signal improvements.

Opportunistic Actions

Understanding that funding opportunities (whether public funding or public funding in

combination with private sources) may arise for transportation improvements within the
TVCP Project Area to work towards to meet the goals and objectives of the TVCP, while
attempting to:
• Encourage private contributions by developers to implement the near term
improvements, including reserving ROW for future transportation improvements (City
of Hillsboro, City of Beaverton, Washington County).
• Acquire the ROW to develop a westbound business access transit (BAT) lane as
redevelopment opportunities arise on Tualatin Valley Hwy. The City of Hillsboro may
also require all half-street improvements be constructed to include the setback curb,
planter strip, and sidewalk improvement to create an amenable environment for
future transit solutions on Tualatin Valley Highway. This redevelopment should be
consistent with ODOT standards. The City of Hillsboro has determined that a BAT lane
would not provide the anticipated benefit for transit service and therefore the city
isn’t acquiring ROW to develop the BAT lane as redevelopment opportunities occur on
TV Hwy check with Gregg Snyder about this. The Moving Forward TV Highway
Enhanced Transit and Access Plan will look at whether there are benefits of using a
BAT lane in part of the corridor from 160th to Cornelius Pass Road.
• As projects arise from appropriate categories examine whether opportunities are
available to use other funds to leverage this funding (e.g., safety) (ODOT, consulting
with partners).
• As land use and transportation system conditions change and near term
improvements are completed, consider the opportunity to update this adaptive
corridor management strategy (all partners).
• Improve existing north-south routes for all modes to reduce travel demand on
Tualatin Valley Highway and congestion at intersections. Improvements to roadways
such as Brookwood Avenue, Century Boulevard, Cornelius Pass Road, 209th Avenue,
198th Avenue, 185th Avenue, and 170th Avenue would provide the greatest benefit to
the overall transportation system. Five improvements on 198th Avenue south of
Tualatin Valley Highway are scheduled in the next five years through Washington
County’s Major Streets Transportation Improvement Program. The other three
corridors will require a more opportunistic approach, including working with

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 developers of South Hillsboro to help improve 209th Avenue (City of Hillsboro, City of
Beaverton, Washington County).
• Improve east-west connectivity (such as those proposed in the upcoming South
Hillsboro UGB development mitigation) in addition to the near term actions proposed
in South Hillsboro such as the Kinnaman and Rosa Road extensions (City of Hillsboro,
City of Beaverton, Washington County).
• Complete the bicycle and pedestrian system in the TVCP Project Area to increase
connectivity and access.
• Implement improvements identified in the Tualatin Valley Trail Concept Plan
• Examine transit service for enhancements and improvements in the near term
improvements list to leverage added service or other capital enhancements. TriMet
has been awarded two Statewide Transportation Improvement Program (STIP)
projects (Highway 8 Corridor Safety and Access to Transit) for improved safety, active
transportation, access to transit and transit operations by improving bus stops,
constructing landing pads, and enhancing crossings. ODOT will be enhancing two
pedestrian crossings, infilling sidewalks, consolidating bus stops, providing transit
queue jumps at one location and improving a bus stop For the second application
(between 110th Avenue and SW 209th Avenue on TV Hwy), the project will enhance
four pedestrian crossing locations, install buffered bike lanes between 153rd and 182nd
Aves, consolidate bus stops, install illumination, ped actuation and signal interconnect
at 141st/142nd and 174th, install physically separated walkways and bike lanes on
bridge sections between 153rd and 160th Ave and the between 30th and 40th Aves.
• Reduce vehicle turn movements to/from driveways on TV Highway. This would
improve safety and mobility of pedestrians, bicyclists, and motorists on TV Hwy.
Further access consolidations are recommended in conjunction with other property
redevelopment.

Long Term Refinement Planning Needs

The refinement plan was unable to adequately address some longer term planning
aspirations for the corridor. The following should be addressed as part of a future
corridor refinement plan:
• The preferred location (e.g. on or adjacent to Tualatin Valley Highway) and most
viable transit mode (e.g., bus rapid transit, express bus service, light rail, streetcar, or
commuter rail) and amount of right‐of‐way needed for a long‐term HCT solution for
Tualatin Valley Highway. This transit alternative analysis study may explore enhanced
signal operations for transit and/or the viability of a Business Access Transit (BAT)
lane in appropriate locations. The Moving Forward TV Highway Enhanced Transit and

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 Access Plan will determine the nature and feasibility of HCT in the corridor primarily
between 160th and Cornelius Pass Rd.
• The location of a multi‐use pathway parallel to Tualatin Valley Highway as per the
Tualatin Valley Trail Concept Plan.
• The location of new local street connections, in concert with access management along
Tualatin Valley Highway.
• While grade separated intersections are not included in the plan, it is recognized that
in the long term, all tools should be considered to maintain acceptable intersection
performance to serve future transportation and community needs.

[Link] Powell-Division Corridor: Portland Central City to Lents Town Center and
Lents Town Center to Gresham Regional Center (Mobility Corridors 19 and 20)

Note – This section will be further updated this Summer and informed by analysis of the RTP
project list using the newly updated regional mobility policy.

The Powell-Division Corridor is included in Mobility Corridors #19 and #20. The Mobility
Corridor Strategy identified in 2014 RTP Appendix 3.1 notes that both corridors are
anticipated to experience high levels of growth in employment and population by the year
2040.

A number of investments are needed in these corridors to address existing deficiencies

and serve increased travel demand.

The Powell-Division Transit and Development Plan alternative analysis identified a

project – now called the Division Transit Project - that addresses some of the needs
identified for the Powell-Division Corridor by improving transit and safety on Division
Street with a bus rapid transit project. The Division Transit Project went into revenue
service in September 2022. The Division Transit Project does not fully address the transit,
safety, and mobility needs that remain on Powell Boulevard.

The Division Transit bus rapid transit project traverses from downtown Portland to
downtown Gresham on Division Street through southeast Portland. Project partners
recognized that Powell Boulevard improvements are still needed to address safety and
mobility needs for all modes and supply essential transit connections in this corridor.
Also, a number of steering committee members qualified their votes of support for the
Locally Preferred Alternative as contingent upon a commitment to further study Powell
Boulevard to address safety and mobility needs moving forward. Based on community
feedback and analysis during the Powell-Division Transit and Development project, the
City of Portland included language documenting this recommendation in their LPA
adopting resolution, as follows:
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BE IT FURTHER RESOLVED, that Metro advance Powell Boulevard for regional
consideration and prioritization within the High Capacity Transit planning process, and
amend the Regional Transportation Plan to assert continued need for Powell Boulevard
transit improvements.

The Powell-Division Corridor is included in Mobility Corridors #19 and #20. The Mobility
Corridor Strategy identified in 2014 RTP Appendix 3.1 notes that both corridors are
anticipated to see high levels of growth in employment and population by the year 2040.

Mobility Corridor #19 provides an important connection between the Portland Central
City and the Lents Town Center and provides important freight access to rail facilities at
Brooklyn Yard and access from Powell Boulevard and McLoughlin Boulevard to the
Central Eastside Industrial District. This corridor also serves statewide and regional
travel on Powell Boulevard (US 26), which serves as a statewide and regional freight
route between I-5 and I-205.

The corridor does not meet regional performance thresholds (does not perform as it
should) for its throughways (Powell Boulevard) and arterials (Division and Holgate
streets) as defined in the RTP due to high volume to capacity ratios.

Strategies adopted in 2014 RTP Appendix 3.1 to improve the corridor include:

Near term:
• System and demand management along Powell Boulevard and parallel facilities for all
modes of travel.
• Improved, safe pedestrian and bicycle crossings of Powell Boulevard.
• Modify existing signals, coordinate and optimize signal timing to improve traffic
operations on Powell Boulevard.
• Prioritize and construct safety and streetscape improvements from SE 50th to SE 84th
Avenue.

Medium term:
• Improve safety by all modes and enhance opportunities for use of bicycles, walking
and transit on Powell Boulevard.
• Identify and implement potential changes to the cross section of Foster Road based on
the Foster Streetscape Plan.

The Oregon Department of Transportation (ODOT) is constructing improvements to help

people get around busy Outer SE Powell Boulevard more safely. The Outer Powell
Transportation Safety Project stretches between I-205 and Portland/Gresham city limits,

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just east of SE 174th Avenue. These safety improvements will reduce the frequency and
severity of crashes and help vehicles, pedestrians, transit and bicyclists share the road
with fewer conflicts.

Roadway, bike and pedestrian safety improvements include:

• Sidewalks where there are none now
• Mix of separated and sidewalk level bike lanes
• Center turn lanes for cars, buses and trucks for safer turns and to reduce back-ups
• Storm drains to prevent water from pooling on the road
• Lighting for improved visibility
• New waterline in some areas
• New traffic signals
• Mid-block flashing light pedestrian crossing beacons (Rectangular Rapid Flashing
Beacons) to alert drivers that people are crossing the street

ODOT expects completion of construction in 2024.

Additionally, for the segment of SE Powell Boulevard between the Ross Island Bridge and
I-205, ODOT is working with the City of Portland to implement safety investments such as
enhanced crossings and speed feedback signs, and studying roadway configuration
options to increase safety for all users.

Mobility Corridor #20 provides an important connection between the Lents Town Center
and the Gresham Regional Center. The corridor provides important freight access,
connecting I-205 to Gresham and the Springwater Industrial Area. In addition, the
corridor serves statewide travel, connecting to routes that lead to destinations outside the
region such as the Mt Hood Recreational Area and Sandy Oregon.

Similar to Mobility Corridor #19, Mobility Corridor #20 is expected to experience high
levels of employment and population growth by 2040 and does not meet regional
performance thresholds for its throughways (Powell Boulevard) and arterials (Division
and Foster streets) as defined in the Regional Transportation Plan due to high volume to
capacity ratios.

Strategies adopted in 2014 RTP Appendix 3.1 to improve the corridor include:
• Near term: System and demand management along the Powell Boulevard and parallel
facilities for all modes of travel.

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• Medium term: Implement a three-lane cross-section on Powell Boulevard from I-205
to SE 174th Avenue with bicycle and pedestrian improvements.
• Long term: Implement additional capacity enhancements along Powell Boulevard
from 162nd to 174th Avenue as needed. Additional enhancements may include
intersecting north-south streets along Powell Boulevard.

[Link] Hillsboro to Portland (Mobility Corridors 13 and 14)

Note – This section will be further updated this Summer and informed by analysis of the RTP
project list using the newly updated regional mobility policy. Additionally, some data used in
the 2018 RTP will be updated prior to RTP adoption.

Washington County is growing faster than its neighbors in the region, and with that
growth comes an increased need to move more people and freight. The Sunset Highway
(US 26) Corridor is a critical thoroughfare for residents, commuters, and the regional
economy, but current conditions result in vehicle congestion, diversion, and unreliable
travel times for people driving, riding transit, and moving freight. These transportation
deficiencies adversely affect the safety, affordability, and livability of the area and can
impede economic competitiveness.

Centered on the US 26 (Sunset Highway) from Hillsboro to Portland, the Westside

Multimodal Improvements Study was recommended in the 2018 RTP and kicked off in
January 2022. The study’s purpose was to address transportation challenges that affect
the movement of people and goods between Hillsboro’s Silicon Forest, Northern
Washington County’s agricultural freight, and the Portland Central City, the international
freight distribution hub of I-5 and I-84, the Port of Portland marine terminals, rail
facilities, and the Portland International Airport.

ODOT and Metro co-managed the study in partnership with local agencies, business
representatives, and community-based organizations. The study was guided by a Project
Management Group, made up of technical staff from partner agencies, and a Steering
Committee composed of decision-making representatives from each of the agencies that
have jurisdiction or ownership of infrastructure or systems considered in the planning
process. An analysis of existing conditions data helped to define the issues and needs
within the corridor and are framed here in the context of five priority areas: mobility and
reliability, safety, social equity, climate action, and economic vitality.

Mobility and Reliability

Corridor #13, which extends east to the Willamette River including the western portion of
Portland’s Central City and Corridor #14 extending west from Murray Boulevard to North

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Plains will account for 22 percent of the region’s households, 20 percent of the region’s
population, and 31 percent of the region’s employment by 2040.

Since the Covid-19 pandemic, we’ve seen changes in travel patterns, including fewer
people transit, fewer people commuting daily to workplaces, and more people working
from home or on flexible schedules. Meanwhile, jobs that require in-person attendance
such as manufacturing, agriculture, retail, hospitality and maintenance are often not
centrally located and may have work shifts that cover 24 hours of the day. These changes
have resulted in afternoon traffic congestion occurring earlier in the day and lasting
longer than before the pandemic.

Corridor #13, which includes the Sunset Highway and its array of complementary parallel
arterial roadways (Cornelius Pass Road, Germantown Road, Cornell Road,
Barnes/Burnside Road, and Beaverton-Hillsdale Highway), carries approximately
229,150 vehicles per day comprising roughly 390,000 person-trips per day. Of the total
vehicle trips, Sunset Highway carries 160,000 vehicles per day, including 6,000 trucks,
and Cornelius Pass Road serves approximately 11,000 vehicles per day.

At present, transit carries approximately 18,710 person-trips per weekday on the MAX
Blue Line, the MAX Red Line, and multiple bus lines serving the parallel arterials in the
corridor. Of those total trips, approximately 11,500 occur on the MAX Blue and Red Lines.
Bus lines serving the Sunset Highway corridor include Line 47 (720 weekday boardings),
Line 48 (1200 average weekday boardings), Line 57 (5,240 average weekday boardings)
and Line 59 (50 average weekday boardings). This is a decrease from pre-pandemic
transit use. TriMet plans to open the western extension of the MAX Red Line to Hillsboro’s
Airport/Fair Complex Station in fall 2024.

The existing transit network in the westside of the Metro area has limited north-south bus
routes, some routes have infrequent service, and may require multiple transfers to reach
a destination. Efforts such as TriMet’s Forward Together concept, the Washington County
Transit Study, and Metro’s High-Capacity Transit Strategy include plans for transit
enhancements and future investments to meet existing transit needs and accommodate
future growth in the Westside Corridor.

Economic Vitality

The Sunset Highway corridor is a major employment center in the region. Many of the
region’s top private employers call the area home including Intel, Nike, Tektronix, Reser’s
Fine Foods, Qorvo, and Salesforce, among others. Top public sector employers include
local school districts, city and county governments, hospitals, and health care providers.

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The semiconductor industry expansion presents Oregon with an opportunity to create the
kind of jobs and investment the state needs for a strong economy, and this area is often
referred to as Oregon’s “Silicon Forest.” In July 2022 Congress passed the $52 billion
CHIPS Act to boost domestic semiconductor manufacturing and design. This creates an
opportunity to solidify Oregon’s position as a world leader in semiconductor innovation
and expand semiconductor design and manufacturing development in Washington
County. New industrial development will place additional demand on our transportation
system and a greater need for freight mobility and reliability through the Sunset Highway
corridor.

Outreach done during the Westside Multimodal Improvements Study reinforced freight-
related concerned identified during the 2013 Westside Freight Access and Logistics
Analysis Oregon’s export economy relies heavily on the computer and electronics
industry, which accounts for over 60% of state’s exports, and valued $15 billion in 2021.
This industry is primarily located in the region’s Westside, and depends on a tightly
managed supply chain to efficiently bring products to markets that are mostly outside of
the greater Portland area. Addressing freight mobility challenges experienced by the
Westside computer and electronics industry will likely also benefit the footwear, apparel,
medical/dental, biopharma and agriculture industries in Washington County.

Freight movement between the Westside industries and the PDX freight consolidation
area and the Portland International Airport depends on two routes:
• US 26 eastbound to I-405 northbound to I-5 Northbound to Columbia Boulevard; and
• Cornelius Pass Road northbound to US 30 southbound to Columbia Boulevard via the
St. Johns Bridge.

US 26 eastbound between Highway 217 and I-405 ranks among the top bottlenecks in the
region. Travel times can vary up to 20 minutes or more for a typical trip from Hillsboro’s
employment areas to PDX, due largely to traffic on US26. This lack of reliability means
that freight haulers and commuters can’t be certain how long a trip will take them, leading
to lost productivity. US26 has the highest freight volume of all non-interstate highways in
the region, but freight trips make up just five percent of total trips on US26. Meanwhile,
freight trips account for sixteen percent of total trips on Cornelius Pass Road, indicating it
is a preferred route for many freight haulers.

Work commute estimates based on Street Light Data indicate that a significant number of
people commute into the area for work. Data shows that about 97,000 people per
weekday commute to the Westside Multimodal Improvements Study area. About 27,000
both live and work in the study area and have local commute trips, while another 64,000
people live in the study area and commute to jobs elsewhere in the region.

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Safety

Many of the key arterials in the Sunset Highway Corridor are identified among Metro’s
2016-2020 High Injury Corridors. These are roadways in the greater Portland area where
the highest concentrations of serious crashes involving a motor vehicle occur. The top five
most dangerous corridors within the study area include: Tualatin Valley Highway,
Baseline Rd, Cornell Rd, Cornelius Pass Rd, and Farmington Rd. A total of 15,000 crashes
occurred between 2015-2019 in the study area, with 53% of crashes resulting in injury.
Of these, 223 crashes involved pedestrians and 188 crashes involved bicyclists.

With congestion becoming more pervasive on US 26 in the area of the Vista Ridge Tunnels
and the I-405 interchange, traffic crashes have continued to increase. Cumulatively, there
are 10 discreet locations on US 26 between I-405 and Highway 217 that rank in the state’s
top 10 percent of crash high-priority locations statewide.

Sunset Highway at the Vista Ridge tunnels prohibits the hauling of hazardous materials.
Petroleum products used to fuel vehicles in the Tualatin Valley and chemicals, including
but not limited to industrial gases used in the manufacturing of silicon wafer products,
commonly use Cornelius Pass Road with Highway 217 as the secondary route.

Both the Sunset Highway corridor and the secondary freight route of Cornelius Pass Road
are susceptible to recurring incidents such as crashes, landslides, and trees blocking the
roadways. In both cases, the regional transportation system lacks “redundancy” to
accommodate any unforeseen impediments to travel. Similarly, both corridors (and their
Willamette River bridges) are not likely to prove reliable and sustainable in the event of a
Cascadia earthquake.

Social Equity

People living within the Sunset Highway corridor are more racially diverse than the
region and state, with over 37% residents of color. Forty-five percent of households are
renters, which is higher than the regional average.

Many areas throughout the corridor score high on TriMet’s transit equity index, reflecting
higher concentrations of people of color, low-income households, people with low English
proficiency, people with disabilities, older adults, youth, households with poor vehicle
access, access to affordable housing, access to low/medium wage jobs, access to
services. Higher scores indicate a potential for higher need for increased transit service,
particularly in areas south of US 26.

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Climate

Land use patterns and past infrastructure investments in the study area prioritized auto
vehicle travel, which contribute to continued reliance on personal vehicles to meet
people’s daily travel needs. This pattern results in high vehicle miles traveled (VMT) and
contributes to greenhouse gas emissions from gasoline powered vehicles. Frequent
congestion on US 26 and nearby facilities contributes to traffic diversion to other routes,
increased vehicle miles traveled (VMT), inefficient vehicle operation, and vehicle idling,
all of which contribute to greenhouse gas emissions in the region.

Recommended Transportation Investments

The Westside Multimodal Improvements Study produced a list of transportation

investments that are intended to address the identified issues and needs in the Sunset
Highway corridor. Investment options were evaluated based on how well they addressed
mobility and reliability, safety, social equity, climate action, and economic vitality. The
Westside Multimodal Improvements Study developed an Implementation Plan that
outlines priority investments for the region to advance for future project development
and funding, including project descriptions, lead agencies, cost ranges, benefits, issues,
and dependent projects.

[PLACEHOLDER FOR RECOMMENDED INVESTMENT OPTIONS & DESCRIPTIONS]

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8.3 PROJECTS
8.3.1 Major Project Development

Transportation improvements where the need, mode, function and general location is
identified in the RTP and local plans are expected to be further refined during detailed
project development. For major projects, project development is generally completed
jointly by affected or sponsoring agencies, in coordination and consultation with Metro.
For purposes of the RTP, major projects are defined as large-scale, complex investments
in the transportation system that typically cost $500 million or more regardless of the
source of funding for the total project and is likely to receive state or federal financial
assistance. Projects with total costs between $100 million and $500 million may also be
considered major projects and are currently considered major projects for the purposes
of the Metropolitan Transportation Improvement Program (MTIP). FHWA requires all
projects with costs of $100 million or more to have financial plans updated annually.
Major projects typically have a high level of public, legislative or congressional interest,
may be constructed in multiple phases and are anticipated to go through one of the
planning processes identified below.

The purpose of project development is to consider project design details and select a
specific project alignment, as necessary, after evaluating engineering, management and
design alternatives, potential environmental impacts and consistency with applicable
comprehensive plans, the Oregon Transportation Plan and the RTP. The TPR defines
project development as, “implementing the transportation system plan by determining
the precise location, alignment and preliminary design of improvements included in the
TSP based on site-specific engineering and environmental studies,” (660-012-005 (36)).
The project need, mode, function and general location do not need to be addressed again
at the project level, since these decisions have been previously documented in the
adopted corridor refinement plan or RTP project list.

For projects of regional significance with multiple jurisdictions, decisions may be

documented through adoption of a Locally Preferred Alternative. Project development
decisions for projects that qualify for a Categorical Exclusion under NEPA can be
documented by other means in accordance with the responsible agency’s procedures.

Once the RTP or corridor refinement plans have established mode, function, general
location, and identified solutions, project development may also result in recommended
phasing of improvements.

A summary of progress on major project development activities follows.

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Table 8.5 Progress (as of 2023) on Major Project Development

Project Status
Interstate 5 Bridge Replacement (IBR) LPA approved in July 2008.
Project Record of decision signed by FHWA in December
2011.
Project development work discontinued in 2013
in Washington and 2014 in Oregon.
Joint Washington and Oregon Legislative Action
Committee discussions begin in 2017.
Partner agencies confirmed support for Modified
LPA
Draft Supplemental Impact Statement in
development, plan to publish Summer 2023
Sunrise Project and Sunrise Community LPA approved in July 2009.
Visioning Project Record of decision for Phase 1, Units 1, 2 and 3
signed by FHWA in February 2011.
Sunrise Jobs and Transportation Act (JTA) Phase
1 related projects were completed in June 2016.
Environmental approval received for
improvements on OR 224 at Rusk Road.
In May 2023, Clackamas County initiated the
Sunrise Community Visioning Project to engage
community in the development of improved
safety and increased mobility in the corridor.
This process will include an updated LPA for
OR212 and OR224 from 205 to 172nd Ave (Phase
2 and Phase 3 of the original project). The
visioning project will include PEL framework and
will lead into the necessary NEPA updates to
advance the LPA. The project will also include
10% design of the LPA.
Southwest Corridor Project LPA approved in Nov. 2018.
ROD received April 2022.
I-5 Rose Quarter Improvement Project Supplemental Environmental Assessment
published for public comment in 2022.
Design phase in progress.
I-205 Abernethy Bridge and Phase 1A Construction is underway.
Construction Column work is underway and will lead to the
construction of the crossbeams in late 2023.
Major drilled shaft work is anticipated to be
complete by Fall 2023.
Mainline widening construction is anticipated to

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 be complete by Fall 2025.
I-205 Toll Project Environmental Assessment was published on
Feb. 21, 2023.
Environmental Assessment Public Comment
Period ended April 21, 2023.
Revised Environmental Assessment is
anticipated as the next step.
I-5 & I-205 Regional Mobility Pricing Planning and Environmental (PEL) phase was
Project completed in Fall 2022.
Environmental analysis process, under the
National Environmental Policy Act (NEPA), was
initiated in Nov. 2022.
A scoping comment period was held from Nov.
18 to Jan. 6, 2023.
Environmental Assessment publication is
anticipated by the end of 2023, followed by a
public comment period and then a Revised
Environmental Assessment is expected in 2024.
I-5 Boone Bridge Replacement The project is currently in the Planning and
Environmental Linkages (PEL) phase.
The National Environmental Policy Act (NEPA)
class of action determination and preliminary
planning activities are scheduled to be
completed in late 2024 or early 2025.
Earthquake Ready Burnside Bridge Preferred Alternative approved in March 2023.
FHWA Record of Decision anticipated to be
published in December 2023
Design Phase anticipated to start, July 1, 2023.
82nd Avenue Transit Project Working towards an LPA in late 2023/early 2024.
The NEPA process would begin in 2024 after
early corridor design and FTA determination of
class of action.
Tualatin Valley Highway Transit and LPA anticipated late 2023
Development Project

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[Link] Interstate 5 Replacement (IBR) Program (previously Columbia River Crossing Project)

Figure 8.5 Interstate Bridge Replacement Program

The Interstate Bridge is a critical connection between Oregon and Washington, located on
Interstate 5 where it crosses the Columbia River. Replacing the aging Interstate Bridge
across the Columbia River with a modern, earthquake resilient, multimodal structure that
provides improved mobility for people, goods, and services is a high priority for Oregon
and Washington.

In July 2008, the Metro Council approved a Locally Preferred Alternative (LPA) for the
Columbia River Crossing (CRC) project. In December 2011, the Federal Highway
Administration (FHWA) and the Federal Transit Administration (FTA) approved the CRC
LPA and issued a Record of Decision for the CRC project. The CRC project development
work was discontinued in 2013 in Washington and in 2014 in Oregon. All six
transportation problems identified during CRC remain unaddressed (congestion,
earthquake vulnerability, safety, impaired freight movement, inadequate bike and
pedestrian paths, and limited public transportation).

The Interstate Bridge Replacement (IBR) program (as depicted in Figure 8.5) is a
renewed effort jointly led by the Oregon Department of Transportation and the
Washington State Department of Transportation in collaboration with eight regional
partner agencies: Oregon Metro, Southwest Washington Regional Transportation Council,
TriMet, C-TRAN, City of Portland, City of Vancouver, Port of Portland, and Port of

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Vancouver. These partners serve on an Executive Steering Group that provides regional
leadership recommendations to the program. The IBR program continues to work with
the program partner agencies, stakeholders, and public to identify the best possible
multimodal solution.

In December 2021, FHWA and FTA provided their joint determination that a
Supplemental Environmental Impact Statement (SEIS) is necessary to identify and
disclose potential adverse impacts and mitigation that could result from changes that
have happened since the 2011 CRC Record of Decision. The IBR program is leveraging
work from previous planning efforts (CRC) where appropriate and updating prior studies
to integrate new data, regional changes in transportation, land use, and demographic
conditions, and public input to inform program development work.

Through planning work and community outreach, the IBR program confirmed the six
transportation problems identified in CRC still exist, and also added equity and climate as
priorities. To address the physical and contextual changes that have occurred in the
program area since 2013, the IBR program developed design options, desired outcomes,
and transit investments in coordination with program partners and input from the
community.

The design options were analyzed and narrowed down to a recommended Modified
Locally Preferred Alternative (LPA). The Modified LPA was approved by the boards,
councils, and commissions of each of the eight local partner agencies in the summer of
2022. In July 2022, the Executive Steering Group reached a unanimous recommendation
to move the program’s recommended Modified LPA into the federal environmental
review process for further study.

The Modified LPA refers to an agreed upon set of components that will be further
evaluated through the federal environmental review process as required by NEPA to
better understand the benefits and impacts. The Modified LPA is not the final design of
the replacement bridge, but it is a key milestone, setting the direction for the program as
we start to test and evaluate plans for a new multimodal river crossing system. In some
instances, multiple design concepts are being studied (e.g., park and ride locations, bridge
configuration and roadway alignment) to better understand the range of impacts and
better optimize the design.

Elements of the Modified LPA currently being studied includes:

• Replacing the Interstate Bridge over the Columbia River
• Replacing the North Portland Harbor Bridge over the Columbia Slough connecting
Hayden Island to North Portland

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• Constructing three through-lanes northbound and southbound throughout the
program corridor with safety shoulders and the addition of one auxiliary lane in each
direction
• Connecting existing transit systems by extending light rail transit from Expo Center in
Portland to Evergreen Boulevard in Vancouver in a dedicated guideway adjacent to I-5
, including new bus on shoulder facilities in the project area, and connecting to C-
TRAN’s current and future Bus Rapid Transit lines as described in adopted regional
plans
• Improving seven interchange areas within the program area corridor:
o Victory Blvd
o Marine Drive
o Hayden Island
o SR 14
o Mill Plain Blvd.
o 4th Plain Blvd.
o SR 500
• Active transportation and multimodal facilities that adhere to universal design
principles and facilitate safety and comfort for all ages and abilities including local and
cross-river connections
• Variable rate toll on motorists using the river crossing to manage demand and
generate revenue for construction and facility operations and maintenance
• A commitment to establish a GHG reduction target relative to regional transportation
impact, and to develop and evaluate design solutions that contribute to achieving
program and state-wide climate goals.
• A commitment to evaluate program design options according to their impact on equity
priority areas with screening criteria such as air quality, land use, travel reliability,
safety, and improved access to all transportation modes and active transportation
facilities. The Program also commits to measurable and actionable equity outcomes
and to the development of a robust set of programs and improvements that will be
defined in Community Benefits Agreement.

The federal environmental review process, and corresponding environmental studies, will
determine how the IBR program will move forward and what necessary work is needed
to avoid, minimize, or mitigate negative effects to the physical and built environment. The
IBR program will disclose the findings of the environmental evaluation in a Draft SEIS,

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which is anticipated to be published in late 2023 for public review and comment. After the
public comment period closes, the Modified LPA will be refined in response to public
input and other design considerations. Refinements will result in a combined Final SEIS
and Amended Record of Decision issued by FHWA and FTA, anticipated in late 2024. At
this stage, the IBR program will be able to apply for permits, update cost estimates, and
further design. Construction is anticipated to begin as early as late 2025.

In December 2022, the IBR program released a cost estimate that reflects the Modified
LPA components and includes updated market assumptions and program specific risk
potential and cost savings opportunities. The current cost estimate ranges from $5 - $7.5
billion, with a most likely cost of $6 billion. The IBR program assumes a combination of a
variety of funding sources, including state, federal and toll revenue.

Anticipated IBR Program Funding Sources:

[Link] Sunrise Project and Sunrise Community Visioning Project

The Sunrise Corridor is an essential freight route from I-5 and I-205 to U.S. 26 and central
and eastern Oregon. It provides access to the Clackamas Industrial Area, home to one of
the state’s busiest and most critical freight distribution centers and the City of Happy
Valley Rock Creek Employment Center with over 200 acres of employment and industrial
land. The OR 212/224 corridor is currently failing and is not capable of handling the
expected increase in traffic resulting from significant community development and
industrial expansion in the corridor.

In July 2009, the project’s Policy Review Committee (PRC) selected the Preferred
Alternative for the Sunrise Project. The Preferred Alternative is Alternative 2 as studied in
the Supplemental Draft Environmental Impact Statement with Design Options C-2 and D-

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3 and a portion of Design Option A-2 (Tolbert Overcrossing). A detailed description and
map of the Sunrise Project original Preferred Alternative is included in Appendix Q.

FHWA, ODOT and Clackamas County completed the Final Environmental Impact
Statement (FEIS) for the Sunrise Project and on February 22, 2011, the FHWA signed a
Record of Decision (ROD) that approves the Sunrise Corridor Preferred Alternative.

The Sunrise Jobs and Transportation Act (JTA) Project constructed a new 2.5 mile road
from I-205 to 122nd Avenue (as part of the larger Sunrise Project). The Oregon
Legislature approved $100 million in JTA funding for this project, which was built to
address congestion and safety problems in the OR 212/224 corridor and improve local
roadway connections to the Lawnfield Industrial District. Construction for the JTA phase
of the Sunrise Project was completed in June 2016 and opened for use on July 1, 2016.

During development of Metro’s 2020 Funding measure the Sunrise Project underwent
extensive redesign based on public input and feedback from the taskforce. The effort
culminated in a “right sized” cross section including 2 lanes in either direction and a suite
of pedestrian and bicycle improvements on existing Highway 212.

In 2021 the Oregon State Legislature allocated $4 Million dollars for the Sunrise Gateway
Community Corridor Visioning Project to create a vision for the corridor through
meaningful partnerships with the people who live, work and own businesses in the area.
This project will analyze transportation and land use scenarios that also consider
economic opportunities, community health, equity, other infrastructure, open space, and
housing for the Sunrise Gateway Corridor along Highway 212 from 122nd Avenue to
172nd Avenue. The Project will employ meaningful community engagement to create a
vision that will identify challenges and opportunities to increase the safety and viability of
the corridor for years to come.

One of the products of this visioning project will be an updated LPA for the Sunrise
Corridor based upon the updated cross section developed during Metro’s 2020 funding
measure. The project will be guided by the PEL framework and will lead into the update
to the NEPA approval from the 2011 FEIS.

Future phases of the Sunrise Project include the design and construction of improvements
between SE 122nd Avenue and SE 172nd Avenue.

[Link] Southwest Corridor Transit Project

The Southwest Corridor Plan is a comprehensive effort focused on supporting

community-based development and placemaking that targets, coordinates and leverages
public investments to make efficient use of public and private resources. The work was
guided by a Steering Committee comprised of representatives from the cities of
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Beaverton, Durham, King City, Portland, Sherwood, Tigard and Tualatin; Washington
County; and TriMet, ODOT and Metro. Steering Committee members agreed to use a
collaborative approach to develop the Southwest Corridor Plan and a Shared
Implementation Strategy to align local, regional, and state policies and investments in the
corridor. In August 2011, the Metro Council adopted Resolution No. 11-4278 that
appointed the Southwest Corridor Steering Committee, and a charter defining how the
partners will work together was adopted by the Steering Committee in December 2011.

In October 2013, the Metro Council adopted Resolution No. 13-4468A, endorsing the
Southwest Corridor Shared Investment Strategy and directing staff to coordinate and
collaborate with project partners on refinement and analysis of high capacity transit
(HCT) alternatives and local connections in the Southwest Corridor, along with associated
roadway, active transportation and parks/natural resource projects that support the land
use vision for the corridor. This resolution also directed staff to work with project
partners to involve stakeholders at key points in the process and seek input from the
public.

In June 2014, the Metro Council adopted Resolution No. 14-4540, which included
direction to staff to study the Southwest Corridor Transit Design Options under NEPA in
collaboration with the Southwest Corridor Plan project partners and with the
involvement of stakeholders and public, pending Steering Committee direction on the
results of the focused refinement analysis

The Southwest Corridor Light Rail Project emerged as the preferred high capacity transit
investment of the Southwest Corridor Shared Investment Strategy. The project is a
proposed 11-mile MAX light rail extension serving SW Portland, Tigard, Tualatin and the
surrounding communities. The proposed project also includes bicycle, pedestrian and
roadway projects to improve access to light rail stations. In compliance with NEPA, and at
the direction of the Metro Council, an Environmental Impact Statement (EIS) was
prepared by Metro, TriMet and FTA. The Draft EIS, released in summer 2018, assessed the
project alternatives remaining from over three years of analysis refinement and
suggested ways to avoid, minimize or mitigate significant adverse impacts. The
information disclosed in the Draft EIS, and public and agency comments on the Draft EIS,
informed the Southwest Corridor Steering Committee in its recommendation of a LPA. In
November 2018, the Metro Council adopted Resolution No. 18-4915 approving the
Southwest Corridor LPA. The LPA is included in the RTP.

The Final EIS was completed in January 2022 and the project received a Record of
Decision in April 2022.

TriMet entered into FTA New Starts Project Development with in late 2018. Major Project
Development activities took place in 2019 and 2020. Unfortunately, the project
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development activities, except NEPA, were put on pause in late 2020 when the regional
transportation funding measure did not pass. The project officially withdrew from New
Starts project Development in July 2022.

Project leaders will reconvene in 2023 to discuss updated cost and ridership projections
and begin conversations about possible paths forward for the project, which remains a
regional priority.

[Link] I-5 Rose Quarter Improvement Project

Figure 8.6 I-5 Rose Quarter Improvement Project Location

The purpose of the I-5 Rose Quarter Improvement Project is to improve the safety and
operations on I-5 between I-405 and I-84, at the Broadway/Weidler interchange, and on
adjacent surface streets in the vicinity of the Broadway/Weidler interchange, and to
enhance multimodal facilities in the Project Area. In achieving the purpose, the Project
also would support improved local connectivity and multimodal access in the vicinity of
the Broadway/Weidler interchange and improve multimodal connections between
neighborhoods east and west of I-5. Additional project benefits include improving safety
and mobility on local streets, creating new space and new infrastructure to support
community development with the construction of a highway cover over a portion of I-5
and developing a diverse and skilled workforce.

This 1.8-mile stretch of highway is the only two-lane section of I-5 in a major urban area
between Canada and Mexico. It has the highest crash rate on any urban interstate in
Oregon and is the state's top traffic bottleneck. The project addresses the critical need to
keep Oregon's people and economy moving. Key elements of the project design include:

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• New ramp-to-ramp connections (auxiliary lanes) in each direction of I-5 between I-84
and I-405 to reduce vehicle weaving, create safer merging and improve connections
between interchanges.
• Wider shoulders in each direction of I-5 between I-84 and I-405, providing space for
stalled vehicles to move out of traffic and for emergency vehicles to respond to
emergencies more quickly (this includes adding 12-foot-wide outside shoulders SB
from Broadway off-ramp to the I-84 off-ramp and NB from I-84 on-ramp to I-405 off-
ramp and adding 8 foot-wide inside shoulders in both directions, except under the
highway cover where shoulders would be 5 feet wide).
• A highway cover over I-5 that reconnects local streets and creates new community
spaces on top for future development and economic opportunities.
• A new east-west roadway crossing over I-5 that reconnects Hancock Street across the
highway, adding another crossing north of Broadway/Weidler.
• Enhanced bicycle and pedestrian facilities on Broadway and Weidler to facilitate the
City of Portland’s Green Loop, a planned 6-mile bike and pedestrian path that allows
people to travel safely through the heart of the city.
• Multimodal local street improvements including wider paths, curb ramps that are
accessible in accordance with the Americans with Disabilities Act (ADA) and better
lighting for people walking, biking and rolling.
• Relocation of the I-5 southbound off-ramp to maximize space for new developable
land on the highway cover.

Figure 8.6 shows the project location and Figure 8.7 the project features.

More information is available at [Link].

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Figure 8.7 I-5 Rose Quarter Improvement Project Features

Source: ODOT

In accordance with the National Environmental Policy Act, ODOT prepared and published
an Environmental Assessment (EA) in 2019, and a Supplemental EA in 2022. Both times,
the process included an opportunity for the public to review the findings and comment on
the analysis. The Federal Highway Administration (FHWA) reviews all findings and public
comments before making an environmental decision on a project. In response to public
comment received on the 2022 Supplemental EA, project design refinements and updated
technical analysis are underway and will be reflected in a Revised Supplemental EA that
will accompany the environmental decision by the FHWA, expected by early 2024. Final
design and construction will begin following completion of the environmental decision
document.

The project team will continue refining the design based on community input, including
based on the public comments received during the 2022 Supplemental Environmental
Assessment phase, and working with the City of Portland on a Community Framework
Agreement to define the future development scenarios for the new highway cover land.

[Link] I-205 Abernethy Bridge and Phase 1A Construction

Phase 1A of the I-205 Improvements project will upgrade the Abernethy Bridge to
withstand a major earthquake and will be the first earthquake-ready interstate structure
across the Willamette River in the Portland metropolitan area.

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In addition to the seismic upgrades, the project will add auxiliary lanes across the
Abernethy Bridge in each direction. This phase of the project will also include interchange
improvements to the interchanges directly north and south of the Abernethy Bridge at OR
43 and OR 99E, respectively. The interchange improvements will make travel safer,
resulting in fewer crashes and better travel-time predictability. These improvements
include removal of the current I-205 northbound on-ramp from OR 43. This will be
replaced with a roundabout to access I-205 northbound. This will reduce crashes and
conflicts with movements to and from OR 43. The project will also realign and widen the
OR 99E on and off ramps providing added capacity.

The project also includes construction of a sound wall near the southbound lanes of I-205
at Exit 9 and new pedestrian and bicycle facilities around OR 43 and OR 99E to increase
comfort for people walking and biking in these areas. Construction began in June 2022
and is expected to end in fall 2025. Financing for this project was possible with financing
tools authorized in HB3055 during the 2022 legislative session.

Figure 8.8 I-205 South Widening and Seismic Improvements Project Area Map

[Link] I-205 Toll Project (Includes Widening and Seismic Improvements)

The proposed I-205 Toll Project would implement variable-rate tolls on the Interstate-
205 (I-205) Abernethy Bridge and Tualatin River Bridges to raise revenue for
construction of planned improvements to I-205 and to manage congestion. Planned I-205
improvements that are part of the I-205 Toll Project include widening a seven-mile
portion of I-205 to construct a third travel lane in each direction between the Stafford
Road interchange and the OR 43 interchange; constructing a northbound auxiliary lane
between OR 99E and OR 213; replacing or reconstructing eight bridges between Stafford
Road and OR 213 to withstand a major seismic event, and installing Traveler Information

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Signs (Active Traffic Management improvements). The I-205 Toll Project location is
shown on Figure 8-9.

Figure 8.9 I-205 Toll Project Area Map

As directed by Oregon House Bill 2017 and the Oregon Transportation Commission,
Oregon Department of Transportation (ODOT) prepared the Portland Metro Area Value
Pricing Feasibility Analysis, which determined that congestion pricing could be used to
help improve travel on I-5 and I-205 during peak times and raise revenue for congestion-
relief projects. In December 2018, the Oregon Transportation Commission submitted a
proposal to the Federal Highway Administration (FHWA) seeking approval to continue
the process of implementing tolls on I-5 and I-205. The I-205 Toll Project is being
evaluated under the National Environmental Policy Act (NEPA) process and is allowed
under the federal tolling authorization program codified in 23 U.S. Code Section 129.

The planned I-205 improvements now included in the I-205 Toll Project were formally
part of a different project, identified as the “I-205 South Corridor Widening and Seismic
Improvements Project” in the 2018 Metro RTP (also referred to in environmental
documentation and public information materials as the I-205: Stafford Road to OR 213
Improvements Project or, simply, the I-205 Improvements Project). In 2021, Oregon
House Bill 3055 provided financing options that allowed the first phase of the I-205
Improvements Project to be constructed. This first phase, referred to as the I-205: Phase
1A Project (Phase 1A), includes reconstruction of the Abernethy Bridge with added
auxiliary lanes and improvements to the adjacent interchanges at OR 43 and OR 99E.
However, ODOT determined that toll revenue would be needed to complete the remaining
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construction phases of the I-205 Improvements Project after Phase 1A. As such, the
planned improvements (besides Phase 1A) were removed from the I-205 Improvements
Project and accompanying 2018 NEPA Documented Categorical Exclusion and are now
included in the I-205 Toll Project.

ODOT, in partnership with FHWA, has prepared an Environmental Assessment (EA) to

evaluate the effects of the I-205 Toll Project on the human and natural environment in
accordance with NEPA. The I-205 Toll Project responds to six key problems identified in
the need statement: critical projects need construction funding; traffic congestion results
in unreliable travel; traffic congestion affects freight movement; traffic congestion affects
safety; traffic congestion contributes to climate change; and Oregon’s highway system is
not seismically resilient.

The EA was released for public and agency comment from February 21 to April 21, 2023.
Following the comment period, ODOT may prepare a Revised EA that could include
FHWA’s and ODOT’s responses to comments, additional environmental analysis as
needed, and refinement and finalization of environmental commitments to avoid,
minimize, and mitigate impacts. FHWA will issue a NEPA decision that could be a Finding
of No significant Impact (FONSI). If a FONSI is issued, construction of the I-205 Project is
expected to last approximately four years.

As Oregon’s toll authority, the Oregon Transportation Commission will set toll rates,
policies (including discounts and exemptions), and price escalation. As part of the Oregon
Toll Program development, ODOT has committed to providing a low-income toll program
when tolling begins. If tolling is approved, the Oregon Transportation Commission will
ultimately set toll rates at levels sufficient to meet all financial commitments, fund Project
construction and maintenance, and manage congestion. The Oregon Transportation
Commission is expected to finalize toll rates about 6 months prior to toll implementation.
ODOT could begin tolling in January 2026.

[Link] I-5 & I-205 Regional Mobility Pricing Project

The Regional Mobility Pricing Project (RMPP) will apply congestion pricing on all lanes of
Interstate-5 (I-5) and Interstate-205 (I-205) to manage travel demand and traffic
congestion on these facilities in the Portland, Oregon metropolitan area in a manner that
will generate revenue for transportation system investments. The pricing varies by time
of day according to a set schedule, which can be updated periodically by the Oregon
Transportation Commission. Higher fees will be charged during peak travel periods (such
as morning and evening peak hours) and lower fees during off-peak hours. Congestion
pricing is intended to encourage motorists to plan travel in advance and allows traffic to
flow more freely during peak times. The project is being developed with an all-electronic
fee collection system.
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The Regional Mobility Pricing Project would apply congestion pricing within the following
extents, as determined by legislation, with the exact locations to be determined during the
federal NEPA process:
• I-5 from the Hayden Island Drive interchange to, and including, the Boone Bridge over
the Willamette River in Wilsonville.
• I-205 from the Glenn Jackson Bridge to OR 213 in Oregon City and I-205 between
Stafford Road and I-5.

Figure 8.10 Regional Mobility Pricing Project Extents

These extents are shown in Figure 8.10. The exact locations where congestion pricing will
be applied within the project limits will be determined during the federal National
Environmental Policy Act (NEPA) process.

Following Oregon House Bill 2017, the Oregon Transportation Commission, and the
Oregon Department of Transportation (ODOT) prepared the Portland Metro Area Value
Pricing Feasibility Analysis, which determined that congestion pricing could be used to
help improve travel times on I-5 and I-205 during peak times and raise revenue for
congestion-relief projects. In December 2018, the Oregon Transportation Commission
submitted a proposal to the Federal Highway Administration (FHWA) seeking approval to
continue the process of implementing tolls on I-5 and I-205.

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The Regional Mobility Pricing Project Planning and Environmental Linkages phase
concluded in September 2022 and ODOT, with FHWA, initiated the environmental review
phase under NEPA in November 2022. ODOT, in partnership with FHWA, is currently
preparing an Environmental Assessment (EA) to evaluate the effects of the project on the
human and natural environment in accordance with NEPA. The Regional Mobility Pricing
Project responds to six key problems identified in the draft need statement: daily traffic
congestion is negatively affecting the quality of life in the growing Portland region; traffic
congestion adversely affects the Portland metropolitan area economy; state and federal
transportation revenue sources are increasingly insufficient to fund transportation
system needs; our regional transportation system must reduce greenhouse gas emissions
by managing travel demand and congestion; a lack of comprehensive multimodal travel
options in the Portland metropolitan region contributes to congestion and limits mobility;
and the Portland metropolitan area’s transportation networks have resulted in
inequitable outcomes for historically and currently excluded and underserved
communities.

Once the EA is complete, the document will be released for public and agency comment.
Following the comment period, ODOT may prepare a Revised EA that could include
FHWA’s and ODOT’s responses to comments, additional environmental analysis as
needed, and refinement and finalization of environmental commitments to avoid,
minimize, and mitigate impacts. FHWA will issue a NEPA decision that could be a Finding
of No significant Impact (FONSI). If a FONSI is issued, ODOT will need to complete a
Cooperative Agreement with U.S. Department of Transportation/FHWA for congestion
pricing implementation under the Value Pricing Pilot Program 5 or recently created
Congestion Relief Program.

As Oregon’s toll authority, the Oregon Transportation Commission will set toll rates,
policies (including discounts and exemptions), and price escalation. As part of the Oregon
Toll Program development, ODOT has committed to providing a low-income toll program
when tolling begins. More details about the low-income program are expected in 2023,
following recommendations from ODOT’s Statewide Toll Rulemaking Advisory
Committee. The Oregon Transportation Commission is expected to finalize toll rates
about six months prior to toll implementation.

5
The U.S. Department of Transportation Federal Highway Administration Value Pricing Pilot Program is intended
to demonstrate whether and to what extent roadway congestion may be reduced through application of
congestion pricing strategies, and the magnitude of the impact of such strategies on driver behavior, traffic
volumes, transit ridership, air quality and availability of funds for transportation programs. The Program provides
tolling authority to State, regional or local governments to implement congestion pricing applications and report
on their effects.

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[Link] I-5 Boone Bridge Replacement

The Boone Bridge on I-5 represents a crucial link on one of Oregon’s critical seismic

lifeline routes that connects the Portland metro area to the Mid-Willamette Valley and
areas to the north and south. The Boone Bridge, which is over 60 years old and has been
widened and modified over time, will require significant upgrades to withstand a major
Cascadia Subduction Zone quake and enable I-5 to continue to serve as a primary West
Coast route for passenger and freight movement stretching from Canada to Mexico.
Lifeline routes will play a critical role in getting supplies and services to the region in the
event of a significant seismic event or other catastrophe.

It is the only crossing of the Willamette River within 15 miles of the Wilsonville town
center. This section of I-5 also experiences significant bottlenecks leading to safety
concerns and poor travel time reliability. Inefficient merging and weaving caused by short
merging areas results in congestion and crashes that reduce travel speeds and travel-time
reliability. Without improvement, this bottleneck will continue to deteriorate, leading to
slower travel, more costly freight movement, and higher safety risks for those who use I-5
and the surrounding transportation network. The project area also includes two of the top
10% Safety Priority Index System (SPIS) locations (e.g.. 2019 location on I-5 south of the
bridge and a 2019 location near the Wilsonville Road interchange. The 2018 I-5
Wilsonville Facility Plan and Regional Transportation Plan identified solutions to address
these issues.

The 2023 RTP includes plans to replace Boone Bridge with a seismically resilient
structure, preserve the current NB auxiliary lane and add an auxiliary lane on SB I-5 from
Wilsonville Road to the Wilsonville-Hubbard Highway (OR 551). The auxiliary lanes
address crashes due to short merging distances, closely spaced interchanges and
frequently congested conditions both on and just south of the Boone Bridge. The project
will also provide a standard 26 foot wide median and widen the outside shoulders to the
current 12-foot standard width. The wider shoulders will provide opportunities for
programs such as Bus on Shoulder. The Boone Bridge is at the edge of designated Urban
Growth Boundary and small portion of the project falls outside the boundary at the south
end of the project.

The first phase of the project is Planning and Environmental Linkages (PEL) which will
include conceptual design, public involvement, transportation planning and analysis (i.e.,
travel patterns, demand), preliminary traffic engineering analysis, and land use analysis
and other related consulting and technical advising services. It will conduct planning-level
analysis and coordination that prepare materials to support the federally required
National Environmental Policy Act (NEPA) process, anticipated to begin in 2025. Further
analysis will be completed to refine project costs, advance project design, determine
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bicycle, pedestrian, and public transportation access, conduct stakeholder engagement,
develop and integrate an equity framework, evaluate land use impacts, coordinate with
Regional Mobility Pricing Project analysis, determine the NEPA class of action, and
prepare the purpose and need statement.

[Link] Earthquake Ready Burnside Bridge Project

Figure 8.11 Earthquake Ready Burnside Bridge Proposed Typical Cross Section

The Earthquake Ready Burnside Bridge Project will replace the existing 97-year old
movable bridge in downtown Portland, Oregon with a new, seismically resilient bridge,
providing Burnside Street, a regionally designated lifeline route, with a crossing of the
Willamette River that would remain fully operational and accessible for vehicles and
other modes of transportation immediately following a major earthquake. A seismically
resilient Burnside Bridge will support the region’s ability to provide rapid and reliable
emergency response, rescue, and evacuation after a major earthquake, as well as enable
post-earthquake economic recovery. The project is anticipated to infuse $545 million into
the state and local economy and create a combination of short and long-term family-wage
jobs, equivalent to approximately 6,200 job-years within Oregon.

Multnomah County initiated the federal environmental review process in 2019. The
County, in partnership with the Federal Highway Administration (FHWA), issued a Draft
Environmental Impact Statement (DEIS) in February 2021 that evaluated four build
alternatives and identified one of those alternatives, the Long-span Replacement
Alternative, as the project’s recommended Preferred Alternative.

Following the issuance of the DEIS, additional cost and funding analysis identified a
substantial risk that the construction costs would be too high to reasonably be able to
fund, which led the County to evaluate ways to reduce construction costs while still
meeting the Project’s purpose and need. Cost reductions were proposed as refinements to
the Preferred Alternative in a Supplemental Draft Environmental Impact Statement. They

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included the reduction of vehicle lanes from five to four, selection of a girder style
structure for west approach, selection of a bascule style movable span over the navigation
channel, and a range of either a cable stay or tied arch option for east approach long span.

The County Board of Commissioners adopted the refined Preferred Alternative in March
2022 and the SDEIS was published in April 2022. In January and February of 2023, TPAC
and JPACT, respectively, recommended the approval of the Preferred Alternative. In
March 2023, Metro Council approved the Preferred Alternative. A combined Final
Environmental Impact Statement and federal Record of Decision is anticipated in
December 2023.

The Earthquake Ready Burnside Bridge, downtown Portland’s first seismically resilient
bridge, will include bike and pedestrian lanes separated from vehicular traffic by a crash-
worthy barrier, an eastbound transit lane with the option to implement a westbound
transit lane in the future, and the ability to accommodate a streetcar line identified in
existing City of Portland planning documents.

The Project is estimated to cost $895M including design, right-of-way, and construction.
Currently, $300M in local funds has been identified through the County’s Vehicle
Registration Fee. The Project is currently funded through the Design Phase. Once
additional funding is secured, construction could start as early as 2025 and be completed
by 2030.

Additional project information is available at: [Link]

[Link] Tualatin Valley Highway Transit and Development Project

The Tualatin Valley (TV) Highway Transit and Development project is studying the
feasibility of converting the existing TriMet Line 57 bus to a bus rapid transit (BRT) line
through major federal investment. Metro is also supporting the creation of a community-
led equitable development strategy (EDS) alongside the transit study to support
community stability in the face of a major transportation investment in the corridor. The
goal of the transit study is to identify a locally preferred alternative (LPA) that would
enable partners to apply for federal funding of transit improvements. A BRT project
would improve transit speed and reliability, making the bus more competitive with
driving along this regional corridor. BRT investment would also improve corridor safety
with station access infrastructure for pedestrians and provide a more dignified and
attractive transit rider experience through improvements to stations such as shelters and
lighting. The BRT project may be nested within or completed in tandem with a roadway
project that more directly addresses the significant safety needs along this high-crash
corridor, especially those of people walking, biking, and accessing transit.

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The project Steering Committee, consisting of representatives from the cities of Forest
Grove, Cornelius, Hillsboro, and Beaverton; Washington County; ODOT, TriMet and Metro;
and four community representatives, is moving toward agreement on an LPA anticipated
in late 2023. The LPA will cover the entire length of the corridor (Beaverton Transit
Center to 19th and B Street in Forest Grove) and may include a minimum operable
segment that defines an initial federal capital investment in a portion of the corridor.

The EDS was completed in June 2023 and approved by the TV Highway Equity Coalition
(TEC), the body who guided its development. Strategies from this document are being
advanced by government and nonprofit partners throughout the corridor and are
independent of the implementation stage of the transit study.

[Link] 82nd Avenue Transit Project

Metro, TriMet, the City of Portland, Clackamas County, ODOT, Multnomah County, and the
Port of Portland as well as community members are collaborating to develop a rapid bus
transit project in the 82nd Avenue corridor between Clackamas Town Center and a
northern terminus yet-to-be-determined. In addition, Metro is working to support a
community-led equitable development strategy (EDS) that will address community
priorities outside of, but often-related to the transit project investment.

The 82nd Avenue corridor is a major route for the region connecting key destinations and
communities in Clackamas County and Portland, Oregon and supporting the movement of
people and goods in a diverse and growing area. The corridor serves many people who
are part of BIPOC, limited English proficiency, and low-income communities, zero car
households, or living with a disability. 82nd Avenue was once the primary north-south
highway for the area before Interstate 205 was opened in 1983. Since then, the primary
function of 82nd Avenue as a regional throughway has diminished, but its importance as a
transit and pedestrian corridor has grown. The roadway continues to carry substantial
amount of freight, auto, and bus traffic.

TriMet’s Line 72 Killingsworth/82 serves the 82nd Avenue corridor and is the highest
ridership bus line in TriMet’s system , and exceeds ridership on the Orange and Yellow
Max light rail lines. However, unlike light rail transit, the bus runs in mixed traffic and is
often delayed. Line 72 is a frequent service route connecting riders to major destinations,
high-capacity transit lines (the new Division FX2 and the MAX Green, Blue, and Red
Lines), and over 20 bus routes just in the corridor. It is a workhorse with high ridership
all day and weekends and saw relatively high retention of riders during the pandemic.

The need for a major transit improvement has been identified in multiple plans including
the 2010 High Capacity Transit (HCT) System Plan, the 2018 Regional Transportation
Plan (RTP), and the 2018 Regional Transit Strategy. In 2019, Metro’s Transportation

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Funding Task Force selected 82nd Avenue as a Tier 1 priority to include a bus rapid
transit project investment. The steering committee has called for the project to address
transit speed and reliability, safety, needs of transit-dependent communities in the
corridor, and to reduce pollution and greenhouse gas emissions, while designing for a
constrained physical environment.

The 82nd Avenue Transit Project would improve transit in the corridor by adding: new
buses with greater capacity, improved pedestrian facilities and access, better lighting,
transit signal priority and physical bus priority in the roadway to move the bus through
congestion, and better stations with shelters, seating, lighting, and real time bus arrival
information. The work will be integrated with the streetscape improvements both
planned and underway.

The need is urgent with an unprecedented opportunity for an 82nd Avenue bus rapid
transit project to leverage and complement a $185 million investment that the City of
Portland, the State of Oregon, and regional partners are making as part of the 82nd
Avenue jurisdictional transfer. These investments provide the opportunity to reimagine
the corridor to improve safety and pedestrian facilities in conjunction with high-quality,
frequent, reliable Bus Rapid Transit service. The City of Portland and ODOT are already
making near-term safety, paving, and maintenance fixes that will improve access to
transit. A second phase of that work is underway through the City’s Building a Better
82nd Avenue program to identify additional improvements within Portland for the
corridor. These improvements would complement/support the transit investment and
could be delivered with the transit project.

The people who live along 82nd Avenue are more likely to rely on transit than the general
population with a high number of equity communities in greater representation than the
region as a whole. These include people that are low-income, BIPOC, have limited English
proficiency, live with a disability, or live in zero car households or in affordable housing.
In addition, 82nd Avenue is high injury corridor with inadequate pedestrian facilities,
lighting, and limited signalized crosswalks and few transit shelters.

The project anticipates having an approved locally preferred alternative demonstrating

regional consensus around the transit mode, general station locations, and alignment in
winter of 2023/24. The NEPA phase of the project would begin post LPA and after early
corridor design is underway. Metro, TriMet, the City of Portland, Clackamas County,
ODOT, Multnomah County, and the Port of Portland as well as community members are
collaborating to develop a rapid bus transit project in the 82nd Avenue corridor between
Clackamas Town Center and a northern terminus yet-to-be-determined. In addition,
Metro is working to support a community-led equitable development strategy (EDS) that

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will address community priorities outside of, but often-related to the transit project
investment.

The 82nd Avenue corridor is a major route for the region connecting key destinations and
communities in Clackamas County and Portland, Oregon and supporting the movement of
people and goods in a diverse and growing area. The corridor serves many people who
are part of BIPOC, limited English proficiency, and low-income communities, zero car
households, or living with a disability. 82nd Avenue was once the primary north-south
highway for the area before Interstate 205 was opened in 1983. Since then, the primary
function of 82nd Avenue as a regional throughway has diminished, but its importance as a
transit and pedestrian corridor has grown. The roadway continues to carry substantial
amount of freight, auto, and bus [Link]’s Line 72 Killingsworth/82 serves the 82nd
Avenue corridor and is the highest ridership bus line in TriMet’s system 6, and exceeds
ridership on the Orange and Yellow Max light rail lines. However, unlike light rail transit,
the bus runs in mixed traffic and is often delayed. Line 72 is a frequent service route
connecting riders to major destinations, high-capacity transit lines (the new Division FX2
and the MAX Green, Blue, and Red Lines), and over 20 bus routes just in the corridor. It is
a workhorse with high ridership all day and weekends and saw relatively high retention
of riders during the pandemic.

The need for a major transit improvement has been identified in multiple plans including
the 2010 High Capacity Transit (HCT) System Plan, the 2018 Regional Transportation
Plan (RTP), and the 2018 Regional Transit Strategy. In 2019, Metro’s Transportation
Funding Task Force selected 82nd Avenue as a Tier 1 priority to include a bus rapid
transit project investment. The steering committee has called for the project to address
transit speed and reliability, safety, needs of transit-dependent communities in the
corridor, and to reduce pollution and greenhouse gas emissions, while designing for a
constrained physical environment.

The 82nd Avenue Transit Project would improve transit in the corridor by adding: new
buses with greater capacity, improved pedestrian facilities and access, better lighting,
transit signal priority and physical bus priority in the roadway to move the bus through
congestion, and better stations with shelters, seating, lighting, and real time bus arrival
information. The work will be integrated with the streetscape improvements both
planned and underway.

6
The Line 72 continues west of 82nd Avenue to Swan Island. However, the 82nd Avenue segment accounts for 77
percent of rides (2022) and 82 percent of the passenger delay (2019).

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The need is urgent with an unprecedented opportunity
for an 82nd Avenue bus rapid transit project to
leverage and complement a $185 million investment
that the City of Portland, the State of Oregon, and
regional partners are making as part of the 82nd
Avenue jurisdictional transfer. These investments
provide the opportunity to reimagine

the corridor to improve safety and pedestrian facilities

in conjunction with high-quality, frequent, reliable Bus
Rapid Transit service. The City of Portland and ODOT
are already making near-term safety, paving, and
maintenance fixes that will improve access to transit. A
second phase of that work is underway through the
City’s Building a Better 82nd Avenue program to identify
additional improvements within Portland for the
corridor. These improvements would
complement/support the transit investment and could
be delivered with the transit project.

The people who live along 82nd Avenue are more likely
to rely on transit than the general population with a
high number of equity communities in greater
representation than the region as a whole. These
include people that are low-income, BIPOC, have
limited English proficiency, live with a disability, or live
in zero car households or in affordable housing. In
addition, 82nd Avenue is high injury corridor with
inadequate pedestrian facilities, lighting, and limited Figure 8.12 82nd Ave Transit
signalized crosswalks and few transit shelters. Corridor

The project anticipates having an approved locally

preferred alternative demonstrating regional consensus around the transit mode, general
station locations, and alignment in winter of 2023/24. The NEPA phase of the project
would begin post LPA and after early corridor design is underway.

8.3.2 Metropolitan Transportation Improvement Program

Note – This section will be further updated this Summer

The Metropolitan Transportation Improvement Program (MTIP) documents how all

federal transportation funding is spent in the greater Portland region for a four-year

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period as well as state- and locally-funded projects that may significantly affect the
region’s transportation system performance. The MTIP serves multiple purposes – the
document:
• lists all federally-funded transportation expenditures;
• identifies funding sources for transportation projects;
• provides project implementation details (e.g., in what year the preliminary
engineering, right-of-way acquisition and construction phase is expected);
• demonstrates federal planning and fiscal requirements to expend federal funds have
been met; and
• reports how adopted regional policies influenced the selection of these near-term
investments as priorities to move forward.

This section describes the role of the MTIP as a key tool for implementing the RTP and
provides an outline of expectations for demonstrating consistency with the RTP to be
programmed in the MTIP for implementation. The MTIP document provides more specific
description of how projects proposed to be included in the MTIP are expected to
demonstrate consistency with the RTP

[Link] MTIP responsibilities and oversight

Metro has the responsibility to prepare the MTIP, but it is done in collaboration and
coordination with ODOT, and transit agencies, TriMet and SMART, as the region’s four
entities responsible for administering federal transportation funding. Additionally, cities,
counties, the Port of Portland, other local agencies, and the public participate in the
development of the MTIP.

JPACT, the Metro Council and the Governor of the State of Oregon approve the MTIP. The
MTIP is then incorporated, without change, into the State Transportation Improvement
Program (STIP), which integrates regional and statewide improvement programs.

[Link] The role of the MTIP in regional planning

The RTP plays a significant guiding role for the MTIP as it sets the policy direction for
what transportation investments are eligible for federal funding and the prioritization
criteria for allocating federal funding. Through inter-regional coordination throughout the
planning and programming process, the MTIP ensures that investments of federal funds
are consistent with the RTP and makes progress in achieving performance targets
established in the plan. The MTIP is updated every three years.

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One of the primary purposes of the MTIP is to ensure scarce federal transportation
funding and investments are making progress towards the regional vision set out for
transportation system in the RTP. As a result, the greater Portland region’s MTIP gives top
priority to strategic transportation investments that leverage and reinforce the region’s
land use strategy envisioned in the 2040 Growth Concept and the supporting multimodal
transportation investments in the RTP.

[Link] Demonstrating consistency prior to implementation

As the vehicle for implementing the RTP, the MTIP has two primary purposes:
1. ensure federal planning and fiscal requirements for expending federal
transportation funds are being met; and
2. ensure the investments are making progress towards regional goals, objectives
and implementing regional policies as part of performance-based programming.

Recognizing these two primary purposes of the MTIP, any investment requiring inclusion
in the MTIP must demonstrate and justify how the investment implements the RTP and
regional policy outcomes. This is necessary to meet federal eligibility and compliance
purposes, provide the best transportation experience possible for the region’s residents,
businesses, employees, and visitors and for good stewardship of scarce transportation
resources.

The determination and demonstration of consistency with the RTP, done through the
MTIP process, comprises quantitative and qualitative evidence that the investment
advances implementation of the RTP investment strategy, financial constraint, project
performance towards regional and federal performance targets, and public involvement
and consultation. In general, there are two main avenues to demonstrate consistency with
the RTP whether as an individual transportation investment or an entire package of
transportation investments may be included in the MTIP. The two avenues include the
following:
1. During the prioritization process to allocate federal transportation dollars to
various transportation projects, including the identification of the criteria and the
consideration of multimodal tradeoffs (prior to the submission to the MTIP); and
2. The process for amending the MTIP.

As each four-year MTIP is developed, determination of consistency is also conducted and

demonstrated programmatically to show how the MTIP package is consistent with and
advances the implementation of the Plan. Additionally, the programmatic evaluation
serves as a monitoring tool for assessing progress in implementing the RTP.

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The following sections describe the core areas that MTIP investments (at individual scale
and during the funding allocation process) are required to demonstrate consistency with
federal requirements and adopted regional transportation policy as expressed in the RTP
goals, objectives, and policies. Example questions are provided to illustrate what
information is sought.

Regional significance

The adopted RTP represents the regional transportation system in the greater Portland
region, which serve regional transportation needs and provides a specified level of
seamless multimodal connectivity, accessibility, and management of people and goods
traveling on the system. As a result, the limited amount of available federal funding must
be allocated strategically to advance the operation or enhance the development of key
facilities across the different modal systems (e.g., transit, bicycle and pedestrian active
transportation, freight) to ensure an interconnectivity while supporting other desired
regional outcomes (travel options, reduced greenhouse gas emission, etc.).

For the purposes of demonstrating consistency, the RTP has identified these key facilities,
programs, and strategies in defining the regionally significant system. Additionally, other
conditions and circumstances may qualify a transportation investment as regionally
significant, as reflected in the RTP definition of regional significance and corresponding
RTP network maps contained in Chapter 3.

Examples of questions asked for transportation investments to demonstrate Regional

Significance:
• Is the transportation investment advancing a project on a facility designated in one or
more of the RTP network maps?
• Does the transportation investment require permitting approval(s) from a federal
agency or project level NEPA review?
• Does the transportation investment provide new motor vehicle capacity and would
normally be included as an input to the regional travel demand model?

Regional goals and objectives

The adopted RTP demonstrates a significant need for investment in the transportation
system to address many growing demands of the transportation system, including the
growing backlog of maintenance, expansion of services, and increased connectivity and
completeness of different modes. Recognizing the scarcity of funding while the need for
investment is ever growing, each dollar invested in the regional transportation system
must serve a regional purpose and advance the implementation of the region’s
transportation vision and supporting goals, objectives and policies.

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To be included in the MTIP, investments must demonstrate how implementation will
address one or more of the RTP’s goals, objectives, and policies, listed in Chapters 2 and 3.
Moreover, the Metro Council identified these key regional policy priorities –
transportation equity with a focus on race and income, safety, travel options, Climate
Smart Strategy implementation, economic development and managing congestion – to be
the focus of this RTP. The RTP’s goals serve as the broad direction and expectation of
what each investment in the system should aim to achieve but additional focus and
attention should be paid to the RTP policy priorities. These goals are consistent with the
federal planning factors issued by U.S. DOT.

Examples of questions asked for investments to demonstrate consistency with Regional

Goals and Objectives include:
• What regional goals and objectives are being addressed by this transportation
investment?
• Is the project identified as part of the adopted RTP financially constrained project list?
• Is the project advancing one or more of the Climate Smart Strategy policies? If so,
which policy(ies) and how?
• Is this project addressing and/or advancing a strategy or action within an adopted
regional modal or topical strategy or plan, or shared strategy of the RTP? If so, which
modal or topical strategy or plan? Which strategy (or strategies) and action(s)? How
does it address or advance the modal or topical strategy or plan?

[Link] Demonstrating fiscal constraint

As a federal requirement, both the RTP and the MTIP are fiscally constrained. Project
costs are not to exceed expected revenue sources. For the MTIP, transportation identified
investments are only those projects for which resources are expected to be available, and
funding identified for the first year must be committed by administering agencies to the
project. The MTIP is not a comprehensive accounting of all transportation investments in
the region; it only accounts for the funding of regionally significant projects and does not
include projects on local streets and facilities. Projects that are 100 percent locally funded
but of regional significance are included for informational and analysis purposes only.

Per federal regulations, transportation projects using federal funds are expected to
demonstrate that revenues needed to deliver the project are available and the revenues
were accounted for in long-range transportation plan revenue projections. Therefore,
projects included in the MTIP must be included in the RTP financially constrained project
list either as an identified individual project or through a programmatic category.
Additionally, projects in the MTIP must be consistent in scope and financial scale as to
what was reflected in the financially constrained RTP project list. The revenue
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assumptions used to develop the RTP financially constrained project are defined in
Chapter 5. Projects included in the RTP financially constrained project list are identified
in Appendix A (2023-2030 time period) and Appendix B (2031-2045 time period).

If a project is proposed for funding and inclusion in the MTIP and is not included in the
RTP financially constrained project list, the RTP must be amended to include the project
as a condition of being adopted in the MTIP.

To amend projects into the financially constrained project list fiscal constraint must be
demonstrated by identifying additional revenues or removing other projects from the
financially constrained project list. More information about the process and other
requirements that must be met to amend the RTP will be provided in the Appendix.

Examples of questions asked for transportation investments to demonstrate Fiscal

Constraint:
• Is the transportation investment/project identified in the adopted RTP financially
constrained project list?
• Is the project consistent in scope and cost as to what was accounted for in the RTP
financially constrained project list and regional travel model?
• How will the funding and implementation of this project impact the sponsoring
agencies ability to adequately operate and maintain its transportation system in the
future?

[Link] Demonstrating support toward achievement of performance targets

Signed into law in 2012, the previous federal transportation reauthorization, known as
Moving Ahead for Progress in the 21st Century (MAP-21), created the most significant
federal transportation policy shift since the 1991 Intermodal Surface Transportation
Efficiency Act (ISTEA). A fundamental element of the legislation was its focus on
performance-based planning and programming.

For the first time, MAP-21 established a federal performance management framework to
improve transparency and hold state transportation departments, transit agencies and
metropolitan planning organizations (MPOs) accountable for the effectiveness of their
transportation planning and investment decisions. The objective of the performance
management framework was to ensure states and MPOs invest federal resources in
projects that collectively will make progress toward the achievement of the national
goals. The required performance-based approach includes targets for measures specified
by U.S. DOT and requirements to track and report progress toward meeting these targets.
Twelve performance measures have been identified through MAP-21 and subsequent U.S.
DOT rulemaking. These federal performance measures and targets address:
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• Safety
• Infrastructure condition
• Congestion reduction
• System reliability
• Freight movement and economic vitality
• Environmental sustainability

Preceding the adoption of the MAP-21 performance-based planning requirements, the

Metro Council and JPACT adoption of the 2010 RTP established an outcomes-focused
performance-based planning process that continues today. The RTP performance-based
process centers on measuring the performance of the adopted RTP investment strategy
and monitoring progress towards transportation system performance targets identified
in Chapter 2. The RTP performance targets address:

• Affordability

• Safety

• Vehicle miles traveled

• Mode share

• System Completion

• Mobility

• Climate change and greenhouse gas emissions reduction

• Clean air

The RTP performance measures and targets contained in Chapter 2 and Appendix L
support and are consistent with federal and state performance-based planning
requirements and measures and align to the federal planning factors required for MPOs to
address and make progress towards. To be included in the MTIP, transportation
investments planned for the region to meet growing demands, needs or deficiencies, must
also demonstrate contribution to progress toward federal and RTP performance targets.

Examples of ways in which transportation investments can demonstrate consistency with

performance targets include addressing:
• How does the transportation investment/project contribute one or more of the federal
and/or regional performance targets for the transportation system?

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• What evaluation was performed to compare candidate projects for making progress
toward federal and regional performance targets? What results can be provided to
demonstrate the investment is making progress towards the federal and/or regional
performance targets?
• How did the funding allocation process consider federal and regional performance
targets in its criteria in the selection of projects and allocation of funds?

[Link] Public involvement expectations and process for demonstrating consistency

As part of federal guidance on public involvement and on Civil Rights laws and the
Executive Order on Environmental Justice, it is expected that all transportation
investments identified in the MTIP have provided and will continue to provide
opportunity for community input and comment until the investment is implemented
and/or open for service. This means prior to an investment being identified in the MTIP, it
must have emerged through planning process that was adopted or approved by a
governing body and be included in the RTP investment strategy. The planning process,
and that process’s community engagement effort, indicates the investment addresses an
identified transportation deficiency and need in the local community and the community
has had opportunity to inform the plan. The adoption or approval of the plan must also
provide an opportunity for public testimony.

Commonly recognized planning processes from which projects emerge include local
transportation system plans (TSPs), but other planning processes include corridor
studies, facility plans and sub-area plans. Additionally, through the development of the
RTP project list, local jurisdictions are asked to self-certify transportation investments
being proposed for the long-range transportation plan have undergone or are currently
undergoing public involvement efforts through an approved planning process.

Examples of ways in which transportation investments can demonstrate consistency with

Public Involvement include addressing the following:
• From which planning process does the transportation investment emerge from? What
opportunities for public feedback were available as part of the process?
• How was feedback from the public incorporated into the development of the
investment?
• What demographic assessment was done to identify communities of color, people with
limited English proficiency, people with low income and other historically
marginalized communities as stakeholders?
• Were all interested/affected stakeholders meaningfully engaged in the funding
allocation prioritization and decision-making process?

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• Were all interested/affected stakeholders meaningfully engaged prior to the request
for programming a project into the MTIP? 7

[Link] Developing the MTIP

The MTIP development process is initiated by Metro with an update to the MTIP program
direction and an initial financial forecast of revenues expected to be available for
programming. The program direction identifies how JPACT and the Metro Council intend
to coordinate the funding allocation processes administered by Metro through the
Regional Flexible Funds Allocation (RFFA) process and for funds administered by ODOT
and public transit agencies – TriMet and SMART. The policy document also describes how
the funding allocation processes address federal regulations for the allocation of federal
transportation funds.

Projects seeking funding through any of the funding allocation processes must be
included in the financially constrained Regional Transportation Plan project list. JPACT
and the Metro Council consider the MTIP for final approval. Upon adoption by the Metro
Council, the MTIP is submitted to the Governor of Oregon for inclusion in the STIP.

7
Interested and affected stakeholders means those members of the public affected or interested in
transportation investment (or package of investment), as well as formal entities, such as natural resource
agencies, emergency management agencies, tribal entities, etc. which may have interests or be affected by the
implementation of the proposed transportation investment.

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8.4 DATA AND TOOLS
8.4.1 Performance-based planning and programming

Over the past two decades, Metro and other transportation agencies have increasingly
been applying “performance management” – a strategic approach that uses performance
data to support decisions to help achieve desired performance outcomes. Performance
management is credited with improving project and program delivery, informing
investment decision-making, focusing staff on leadership priorities and providing greater
transparency and accountability to the public.

Performance-based planning and programming (PBPP) applies this strategic approach

within the planning and programming processes of MPOs, like Metro, and other
transportation agencies to achieve desired performance outcomes for the multimodal
transportation system. This includes a range of activities and products undertaken by a
MPO together with other agencies, stakeholders, and the public as part of a 3C
(cooperative, continuing, and comprehensive) process. It includes development of: long-
range regional transportation plans, the Congestion Management Process, other plans and
processes developed by ODOT and transit providers, such as Strategic Highway Safety
Plans, Asset Management Plans, Transit Agency Asset Management Plans and Transit
Agency Safety Plans, and programming documents, including State and Metropolitan
Transportation Improvement Programs (STIPs and MTIPs).

PBPP attempts to ensure that transportation investment decisions are made – both in
long-term planning and short-term programming of projects – based on their ability to
meet established goals.

This section summarizes data and research activities to address existing and emerging
planning and policy priorities and innovative practices in transportation planning and
analysis. These activities help ensure that the region has the resources to fulfill its state
and federal transportation performance measurement, monitoring and reporting
responsibilities.

8.4.2 Data Collection and Coordination

This section summarizes data collection and coordination to support regional

transportation planning and analysis, including regional travel model calibration and
validation, and federal congestion management process analysis and performance based
planning target setting and monitoring. The majority of our data is maintained in Metro’s
Regional Land Information System (RLIS). This database is comprised of over 150
different (primarily geospatial) data sets, and most of the data sets identified in the
sections below are elements. Metro publishes RLIS on a quarterly basis, but many data

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sets are on different cycles and come from different sources. All data sets are available for
review at [Link] along with a date of last publication. The
associated metadata should be consulted in advance to understand how the data were
generated and to determine the appropriateness of its use.

[Link] Growth Data

Metro Research Center will continue to refine its recently developed Land Development
Monitoring System (LDMS) as a component of RLIS. LDMS tracks the location cost and
use-type of residential and employment land utilization to inform regional growth
management and transport planning. Metro will work to enhance LDMS and RLIS with
more equity-related data.

[Link] Travel Activity Data

Metro Research Center staff is leading coordination efforts for the next regional travel
behavior survey (Oregon Travel Study, Spring 2023-Spring 2024). Additional research
will be necessary to ensure that the survey captures traditionally relevant as well as
emerging behavior (e.g., extent of Uber/Lyft utilization in place of other travel modes,
working from home, and online shopping), and be conducted in a comprehensive and
cost-effective manner. One outcome was a shift from traditional one-day travel diaries to
smartphone-based weeklong surveys as the primary collection method. The new survey
also includes revised sampling, recruitment, and outreach strategies to improve
participation among hard to reach and historically marginalized groups.

New and emerging data collection methods (e.g. location-based services data, longitudinal
or rolling surveys, emerging needs follow up surveys, mobile phone apps, personal GPS
devices, etc.) will also be investigated to help ensure that the survey effort is well
positioned to capture rapidly changing trends in personal travel behavior. Metro will
partner with other Oregon modeling agencies (via the Oregon Modeling Statewide
Collaborative, OMSC) as well as the Southwest Regional Transportation Council (SWRTC)
to maximize the geographic span and cross agency utility of the data.

[Link] Transportation Safety Data

Metro staff will coordinate with federal, state, regional and local partners to acquire,
collect and maintain the data currently used for transportation safety related analysis.
This data includes, but is not limited to, crash data provided by ODOT and roadway
network, traffic volume and vehicle mile traveled data. Additionally, new data required to
provide more in-depth analysis will be pursued, including race and ethnicity of crash
victims, posted speed and pedestrian crossing data to name a few.

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[Link] Multi-Modal Network Data

Metro Research Center will continue to update multimodal data in RLIS. RLIS street
centerlines, sidewalks, bike routes and off-street trails networks are updated quarterly
and comprise the basis of the multimodal network.

Research staff will also continue to develop and maintain high-resolution multimodal
modeling networks. The modeling networks support long-range planning, project
evaluation, and system performance monitoring needs. Staff will coordinate with other
state agencies via the OMSC as new modeling networks are developed (e.g. the statewide
OpenStreetMap-based network and the statewide multimodal network).

[Link] Multi-Modal Network Data

Metro Research Center will continue to update multimodal data in RLIS. RLIS street
centerlines, sidewalks, bike routes and off-street trails networks are updated quarterly
and comprise the basis of the multimodal network.

Research staff will also continue to develop and maintain high-resolution multimodal
modeling networks. The modeling networks support long-range planning, project
evaluation, and system performance monitoring needs. Staff will coordinate with other
state agencies via the OMSC as new modeling networks are developed (e.g. the statewide
OpenStreetMap-based network and the statewide multimodal network).

8.4.3 Analysis Tool Maintenance and Enhancement

This section summarizes planned maintenance and enhancement of the regional travel
model and MOVES, and the development of a replacement land use model for the now
defunct MetroScope model to address existing and emerging planning and policy
priorities and innovative practices in regional transportation planning and analysis.

[Link] Growth Forecast

Metro Council has committed to making its next Urban Growth Boundary decision by the
end of 2024. That decision will adopt a Regional Economic Forecast of total future jobs
and employment. Upon adoption of those regional control totals Metro will work to create
the next generation Distributed Forecast (the Traffic-Analysis-Zone-level growth
forecasts used in transportation planning and forecasting). The distributed forecast
(likely to be released in 2026) will be available to support future MTIP and RTP update
cycles.

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[Link] Growth Forecast Tools

A replacement land use model will not be in place for the 2026 Distributed Forecast. The
Metro Planning, Development and Research Department will work closely with local
jurisdictions to modify and prepare a revision to the most recent land use forecast with
available methods and best available Regional Economic Forecast information. Metro
Research Center is now working to scope and implement a replacement for the
MetroScope land use allocation model but it will not be ready in time for the anticipated
2024 Urban Growth Management cycle. We will consider a wide variety of traditional and
next-generation tool options to replace Metro Scope with the goal to have such a land use
model operational by the subsequent growth management cycle in 2030. This work will
directly improve the means of producing future distributed forecasts.

[Link] Regional Transportation Model Tools

Metro staff will continue to maintain and enhance the current trip-based travel model.
Recent enhancements to the model include the transition from a 2015 to a (pre-COVID)
2020 base year; implementation of a new regional freight model that considers
commodity flows associated with supply chains at the global, national, and regional
scales; and improvements to the model’s ability to represent the effects of roadway
pricing across varying user segments. Future activities include incorporation of the
results of an updated regional household travel survey and refinements to: the bicycle
assignment algorithm. Metro staff will stay current with updated versions of the EPA’s
Motor Vehicle Emission Simulator (MOVES) for estimating emissions of criteria
pollutants, greenhouse gases and air toxics.

8.4.4 Analysis Tool Development

This section summarizes development of new analysis tools to address existing and
emerging planning and policy priorities and innovative practices in regional
transportation planning and analysis. It includes visualization tools, housing and
transportation cost tool, project-level evaluation, piloting the multi-criteria evaluation
(MCE) tool, and crash prediction modeling tools.

[Link] Regional Activity-Based Model

The statewide estimation of the ActivitySim platform will begin in FY23-24, with scoping
and design to begin in April 2023. Upon completion of the Oregon Household Survey in
2024, estimation of the activity-based model will begin (FY24-25). Key efforts during
2024-2025 will include the development of staff expertise and a common, statewide
estimation of ActivitySim that will be the basis for local deployment of the toolset. FY25-
26 will see the deployment of ActivitySim to local jurisdictions—including Metro—and

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will require further estimation and calibration work to customize for the Portland region.
Travel Forecasting staff will coordinate closely with Metro planning to ensure that the
activity-based model framework is analytically aligned with anticipated policy questions,
and will be ready for deployment for the 2028 Regional Transportation Plan.

[Link] Regional Freight Model

Development of the freight model is complete and the model is integrated with the trip-
based travel demand model. The freight model will be integrated with the ActivitySim
activity-based model as that model is implemented at Metro.

[Link] Housing and Transportation Expenditure Tool

During the 2018 RTP, the Metro Research Center began development of the framework
for a Housing and Transportation Expenditure tool to assess out-of-pocket expenditure
for housing and transportation and to project the effects of future transportation
investments on housing and transportation costs. Both current and forecast states of the
regional land markets and transportation system will be represented in a final tool after
further development, testing and refinement. The tool will help to respond to various
questions pertaining to gentrification and displacement when assessing transportation
investment scenarios.

[Link] Economic Value Atlas Decision-Support Mapping Tool

Development of the Economic Value Atlas (EVA) established tools and analysis that align
planning, infrastructure, and economic development to build agreement on investments
to strengthen our economy.

This work:
• Provides mapping and insight into our regional economic landscape;
• Links investments to local and regional economic conditions and outcomes; and
• Informs policy and investment – providing a foundation for decision-makers to
understand the impacts of investment choices to support growing industries and
create access to family-wage jobs and opportunities for all.

The EVA provides a solid data foundation for key regional activities such as:
• outlining a path to pursue policy, actions and investment that help support growing
industries and family-wage jobs;;
• defining potential areas for partners to collaborate and develop shared investment
strategies;

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• pinpointing areas of focus for regional investment to bridge local and regional
economic development aspirations; and
• providing a data picture of the regional economy to align investments that achieve the
coordinated vision of Greater Portland 2020, the 2040 Growth Concept and the
Regional Transportation Plan.

This work supports regional transportation planning and investment decisions by:
• Highlighting key intersects between transportation + economic conditions that can
guide project prioritization criteria incorporated into the next 3-year RFFA cycle.
• Building a granular understanding of relative economic strengths and challenges
among communities in the region to inform local Transportation System Plans and
area studies, regional investment areas and corridor refinement planning and
planning studies, and advance more strategic transportation project prioritization and
investment based on surrounding economic conditions.
• Supporting multiple applications by ongoing regional programs in Metro’s Planning
and Development Department.

[Link] Displacement Monitoring Tool

First Identified as a key priority for the RTP transportation equity evaluation in 2017,
involuntary displacement continues to be of concern in the region.. Specifically,
policymakers and marginalized communities desired to understand the potential
displacement impacts to result in investment as well as what proactive mitigation
strategies may be put into effect in advance to address the displacement risk. Through
development of the 2018 RTP transportation equity system evaluation method, it was
determined the RTP system analysis would not be able to look at displacement risk due to
the limitations of the forecasting tool.

Nonetheless, in an effort to honor the input and recognize the concern about
displacement risk from public investment in the transportation system, the 2018 RTP
recommended development of a streamlined displacement risk tool, which can help
inform plans, project designs, and other components of transportation investment. Since
2018, the Southwest Equitable Development Strategy (SWEDS) developed a displacement
risk method that is informing development of a displacement risk monitoring tool in the
future.

Metro’s Data Resource Center (DRC) is currently researching methods of monitoring

displacement risk in the region, which will likely include some of the demographic,
housing, and business data that Metro already collects or compiles. Metro’s displacement
research is evolving alongside other analytical areas, including monitoring geographic

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changes in land use and demographics in the region. A displacement monitoring tool will
help policy makers understand where displacement risk is heightened in the region, as
well as understand what indicators are increasing the risk. This information will in turn
help policy makers work with stakeholders and constituents to identify policies that can
help mitigate displacement, especially in areas where public investment is occurring

[Link] Crash Prediction Modeling Tool

Better understanding and evaluation of how projects, programs and strategies impact
transportation safety system wide are key elements to effectively planning for safety and
achieving safe system programs such as Vision Zero. Metro staff will coordinate with
federal partners and other MPOs to develop and pilot the use of crash prediction
modeling tools to assess safety performance system wide.

[Link] Social Vulnerability Explorer

Metro’s Data Resource Center has developed a Social Vulnerability Explorer 8, which
provides an introductory point of access to regional indices and indicators related to
potential social vulnerability in the five-county Portland metropolitan region, including
Clackamas, Columbia, Multnomah, and Washington counties in Oregon and Clark County
in Washington. The application enables exploratory data analysis and visualization, as
well as comparisons of user-specified areas to regional averages.

The online explorer was built as part of a larger Social Vulnerability Tools project 9, which
sought to identify which communities in the region experience barriers to emergency
services and programs before, during, and after disasters. Besides helping to craft a
common understanding of social vulnerability in the region, the Social Vulnerability Tools
project also helped to create a set of social vulnerability data, including input indicators
and output indices.

The Social Vulnerability Explorer was specifically built for the purpose of allowing those
that do not have access to or experience with mapping software to use an online internet
browser to explore and visualize the geographic distribution of and relationship between
indicators and indices in the Social Vulnerability Tools project.

Potential use cases of the Social Vulnerability Explorer include:

• Emergency management and human or health services professionals can understand
the demographic composition of service territories or investment areas, as well as the

8
[Link]
9
[Link]

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 various types of vulnerabilities that may be reflected in their respective
constituencies.
• GIS professionals can conduct exploratory visualization and analysis, specifically as it
relates to the intersection of multiple indicators, which can be done more quickly and
efficiently with the online tool than with traditional desktop-based mapping software.
• Community-based organizations can quantify the demographic composition of their
service areas – perhaps for grant writing.
• Academics or researchers can compare demographics between neighborhoods and
other areas of interest, such as transportation corridors, municipalities or the region.

[Link] VisionEval (VE-RSPM) Climate Monitoring Tool

The VisionEval framework is built on the “GreenSTEP family” of models developed by the
Oregon Department of Transportation (ODOT) to assist in the development of plans to
reduce greenhouse gas (GHG) emissions from light-duty vehicles in order to meet Oregon
State statutory goals. The RSPM (Regional Strategic Planning Model) was developed by
ODOT as an offshoot of the GreenSTEP model to support the preparation of metropolitan
area scenario plans. The name reflects a broadening of the policies, beyond state statutory
requirements. Metro and consulting staff are using and enhancing Metro’s VE-RSPM to
monitor our progress toward our climate goals achieved by RTP projects and policies.

8.4.5 Monitoring and Reporting Tools

This section summarizes information systems and data resource coordination efforts that
Metro is doing or will do to ensure that the region has the resources to fulfill its
transportation performance-based planning, programming and reporting responsibilities.

[Link] Monitoring Data and Information Systems

Metro Research Center staff will continue to investigate new and emerging data sources
and data collection methods (e.g., location-based services data, longitudinal or rolling
surveys, mobile phone apps, personal GPS devices, etc.) to help ensure that Metro is well
Research Center staff will also continue to collect and process National Performance
Management Research Data Set (NPMRDS) data for federally-required performance
monitoring purposes. Staff will also continue to explore and support the ODOT-provided
auto travel speed and volume data available via the Regional Integrated Transportation
Information System (RITIS) platform

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[Link] Congestion Management Process Data Collection and Monitoring

This section summarizes the region’s approach to monitoring and reporting on the
progress implementing the RTP through the regional Congestion Management Process
(CMP).

The great challenge for establishing and maintaining a monitoring program has been the
availability of data. Historically, collecting and managing data has been expensive and
difficult. With advancements in Intelligent Transportation Systems (ITS) in the region,
more and better data is available today and will continue to grow with implementation of
data collection projects identified in the Regional Transportation System Management
and Operations (TSMO) plan.

Starting in 2008, the region approved ongoing funding for implementation, including an
annual allocation to fund Portal, the regional transportation data archived, housed and
maintained by Portland State University. PSU, in partnership with ODOT, TriMet, Metro
and other local agencies, provides data aggregation, maintenance and reporting on the
region's roadways and transit systems. Metro will continue to work with ODOT and other
regional partners to expand existing data collection and performance monitoring
capabilities, in order to evaluate system performance for all modes of travel and support
the region’s CMP.

This work includes supporting a data management system to facilitate data collection,
maintenance and reporting to support on-going RTP and MTIP monitoring. The
performance monitoring will be reported biennially as part of the Regional Mobility
Program, consistent with the region’s federally approved congestion management
process.

Table 8.6 lists where key elements of the region’s CMP are addressed in the RTP and
Appendices to show how the region’s planning and investment activities implement the
CMP.

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Table 8.6 Key Elements of the Region’s Congestion Management Process (CMP)

Regional Congestion Associated RTP/MTIP Activities

Management Process
Develop congestion RTP Goals and Objectives (Chapter 2), RTP Policies (Chapter 3)
management
objectives and policies
Define geographic area RTP (Appendix L – Figures 3 and 4)
and network of
interest
Establish multimodal RTP Performance Measures and Targets (Chapter 2), RTP Federal
performance measures Performance Measures and Targets (Appendix L)

Collect data and RTP Existing Conditions (Chapter 4 Mobility Corridor Atlas (2015)
monitor system
performance
Analyze congestion RTP Existing Conditions (Chapter 4), RTC CMP Monitoring Report
problems and needs (2021), RTP Performance Evaluation (Chapter 7)

Identify and evaluate RTP (Chapter 6), RTP (Chapter 7), RTP (Appendix E - Transportation
effectiveness of Equity Evaluation), RTP (Appendix F – Environmental Analysis and
strategies Potential Mitigation Strategies), RTP (Appendix J – Climate Smart
Strategy Implementation and Monitoring), corridor refinement
planning, area studies, local transportation system plans
Implement selected MTIP, local jurisdictions, ODOT, TriMet, SMART, TransPort,
strategies and manage Regional Transportation Functional Plan, RTP (Chapter 8)
transportation system
Monitor strategy Scheduled RTP updates, CMAQ Performance Plan, RTP (Appendix J
effectiveness10 – Climate Smart Strategy Implementation and Monitoring), RTC
CMP Monitoring Report

More information about the region’s Congestion Management Process is provided in

Appendix L.

[Link] Performance monitoring measures and targets

Performance monitoring measures identified in Chapter 4, Appendix J and Appendix L are

used to track changes in system performance and implementation progress over time and
between scheduled updates to the RTP. Reporting these changes provides valuable
information on trends and conditions using actual empirical or observed data to the

10
USDOT, “Guidebook on the Congestion Management Process in Metropolitan Transportation Planning.” Page
1-1 (April 2011).

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extent possible in advance of RTP updates to assess how the transportation system is
performing and identify possible policy or strategy adjustments that may be needed.

Appendix J contains a complementary set of performance measures and performance

monitoring targets specific to tracking implementation of the Climate Smart Strategy
adopted by JPACT and the Metro Council in 2014 and report on progress. The Climate
Smart Strategy performance measures and targets are used to monitor and assess
whether key elements or actions that make up the strategy are being implemented, and
whether the strategy is achieving expected outcomes. The Climate Smart Strategy
performance monitoring targets are not policy targets, but instead reflect a combination
of the planning assumptions used to evaluate the Climate Smart Strategy and outputs
from the evaluation of the adopted strategy.

Appendix L documents the region’s approach to addressing the federal transportation

performance-based planning and congestion management requirements contained in the
Moving Ahead for Progress in the 21st Century Act (MAP-21) and the Fixing America’s
Surface Transportation (FAST) Act. The multimodal performance measures and near-
term performance monitoring targets in Appendix L are used to monitor transportation
system performance using empirical or observed data between scheduled updates.

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Glossary of Terms
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GLOSSARY OF TERMS
Accessibility – The ability to reach desired goods, services, activities and destinations with
relative ease, within a reasonable time, at a reasonable cost and with reasonable choices. Many
factors affect accessibility (or physical access), including mobility, the quality, cost and
affordability of transportation options, intersection design, land use patterns, connectivity of the
transportation system and the degree of integration between modes. The accessibility of a
particular location can be evaluated based on distances and travel options, and how well that
location serves various modes. Locations that can be accessed by many people using a variety of
modes of transportation generally have a high degree of accessibility. See also Transit
accessibility.

Access Management – Enables access to land uses while maintaining roadway safety and
mobility through controlling access location, design, spacing and operation.

Action – Discrete steps to make progress toward a desired outcome(s).

Active Living – Lifestyles characterized by incorporating physical activity into daily routines
through activities such as walking or biking for transportation, exercise or pleasure. To achieve
health benefits, the goal is to accumulate at least 30 minutes of activity each day.

Active transportation – Non-motorized forms of transportation including walking and biking,

people using wheelchairs or mobility devices and skateboarding. Transit is considered part of
active transportation because most transit trips start with a walking or bicycle trip.

Active transportation network – Combined network of streets, trails and districts identified on
the Regional Pedestrian and Bicycle Network Functional Classification Maps and identified as
pedestrian and bicycle parkways, regional bikeways, regional pedestrian corridors and regional
pedestrian and bicycle districts, which include station communities. The active transportation
network also includes frequent bus routes, all of which are designated as pedestrian parkways,
and high ridership bus stops.

Active Transportation Plan – Adopted in 2018, the Regional Active Transportation Plan
identifies a vision, policies and actions to complete a seamless green network of on- and off-street
pathways and districts connecting the region and integrating walking, biking and public transit.

Adaptation – This term refers to adjustment in natural or human systems in anticipation of or

response to a changing environment in a way that effectively uses beneficial opportunities or
reduces negative effects.

Air toxics – Also known as toxic air pollutants or hazardous air pollutants, are those pollutants
that cause or may cause cancer or other serious health effects, such as reproductive effects or
birth defects, or adverse environmental and ecological effects.

Air quality – Air quality refers to the degree to which the air is suitable or clean enough for
humans or the environment. Good air quality means the air is free of harmful substances.

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All Roads Transportation Safety (ARTS) – Formerly known as the Jurisdictionally Blind Safety
Program, is an Oregon Department of Transportation Program that is designed to address safety
needs on all public roads in Oregon. The program’s goals are to:
• Increase awareness of safety on all roads;
• Promote best practices for infrastructure safety;
• Complement behavioral safety efforts;
• Focus limited resources to reduce fatal and serious injury crashes in the state of Oregon.

The program is data driven to achieve the greatest benefits in crash reduction and is blind to
jurisdiction.

Amendment – A revision to a long-range statewide or metropolitan transportation plan, TIP, or

STIP that involves a major change to a project included in a metropolitan transportation plan, TIP,
or STIP, including the addition or deletion of a project or a major change in project cost,
project/project phase initiation dates, or a major change in design concept or design scope (e.g.,
changing project termini or the number of through traffic lanes or changing the number of
stations in the case of fixed guideway transit projects). Changes to projects that are included only
for illustrative purposes do not require an amendment. An amendment is a revision that requires
public review and comment and a redemonstration of fiscal constraint. If an amendment involves
“non-exempt” projects in nonattainment and maintenance areas, a conformity determination is
required.

Arterial – A classification of street. Arterial streets interconnect and support the throughway
system. Arterials are intended to provide general mobility for travel within the region. Correctly
sized arterials at appropriate intervals allow through trips to remain on the arterial system
thereby discouraging use of local streets for cut–through travel. Arterial streets link major
commercial, residential, industrial and institutional areas. Major arterials serve longer distance
through trips and serve more of a regional traffic function. Minor arterials serve shorter, more
localized travel within a community. As a result, major arterials usually carry more traffic than
minor arterials. Arterial streets are usually spaced about one mile apart and are designed to
accommodate bicycle, pedestrian, truck and transit travel.

Arterial traffic calming – Designed to manage traffic at higher speeds and volumes, but still
minimize speeding and unsafe speeds. Treatments can include raised medians, raised
intersections, gateway treatments, textured intersections, refuge islands, road diets, and
roundabouts.

Asset management – A strategic and systematic process of operating, maintaining, and

improving physical assets, with a focus on both engineering and economic analysis based upon
quality information, to identify a structured sequence of maintenance, preservation, repair,
rehabilitation, and replacement actions that will achieve and sustain a desired state of good repair
over the lifecycle of the assets at minimum practicable cost.

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Attainment area – Any geographic area in which levels of a given criteria air pollutant (e.g.,
ozone, carbon monoxide, PM10, PM2.5, and nitrogen dioxide) meet the health-based National
Ambient Air Quality Standards (NAAQS) for that pollutant. An area may be an attainment area for
one pollutant and a nonattainment area for others. A “maintenance area” (see definition in this
section) is not considered an attainment area for transportation planning purposes. The greater
Portland region received attainment status in 2017.

Autonomous vehicle (AV) – Also known as a driverless car, self-driving car, robotic car, AVs use
sensors and advanced control systems to operate independently of any input from a human
driver. Transportation experts have developed a five-level system to distinguish between
different levels of automation;i in this plan we focus on Level 4 or 5 AVs, which can operate
independently under most or all conditions.

Auxiliary lane – An auxiliary lane is the portion of the roadway adjoining the through lanes for
speed change, turning, weaving, truck climbing, maneuvering of entering and leaving traffic, and
other purposes supplementary to through-traffic. An auxiliary lane provides a direct connection
from one interchange ramp to the next. The lane separates slower traffic movements from the
mainline, helping smooth the flow of traffic and reduce the potential for crashes and is not
intended to function as a general purpose travel lane. Auxiliary lanes add additional motor vehicle
capacity. New or extended auxiliary lanes with a total length of one-half mile or more, or existing
auxiliary lanes being considered for conversion to general purpose lanes through restriping, must
be reviewed as provided under the Congestion Management Process (RTP Section 3.55) and OAR
660-012-0830 (unless exempted as provided by the rule) due to the potential for these facilities to
increase motor vehicle travel per capita. See also definition for Congestion Management Process.

Barrier – A condition or obstacle that prevents an individual or a group from accessing the
transportation system or transportation planning process. Examples include a physical gap or
impediment, lack of information, language, education and/or limited resources.

Best practices – For purposes of this document, the term “best practices” is used as a general
term of preferred practices accepted and supported by experience of the applicable professional
discipline. It is not prescriptive to a particular set of standards or a particular discipline.

Better Bus (enhanced transit toolbox) – Better bus is a set of street design, signal, and other
enhanced transit improvements that improve transit capacity, reliability and travel time along
major Frequent Service bus lines. Actions can include changes to the design and operation of
streets and signals, typically owned and operated by the City. It can also include changes to transit
vehicle fleet, station equipment and operation systems typically owned and operated by TriMet.

Better Bus projects come in a variety of shapes and sizes; for example, the improvements might
address bottlenecks, or a portion of a transit line experiencing delay, or in some cases,
improvements to a full transit line. Treatments can be applied systematically across a transit
network to improve multiple lines or through a corridor approach to improve one or more transit
lines. Better Bus is intended to be flexible and context-sensitive during design and
implementation. It encompasses a range investments comprised of capital and operational

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treatments of moderate cost. It can be deployed relatively quickly in comparison to larger transit
capital projects, such as building light rail.

Bicycle – A vehicle having two tandem wheels, a minimum of 14 inches in diameter, propelled
solely by human power, upon which a person or persons may ride. A three–wheeled adult tricycle
is considered a bicycle. In Oregon, a bicycle is legally defined as a vehicle. Bicyclists have the same
right to the roadways and must obey the same traffic laws as the operators of other vehicles. Also
referred to as bike.

Bicycle boulevards – Sometimes called a bicycle priority street, a bicycle boulevard is a low-
traffic street where all types of vehicles are allowed, but the street is modified as needed to
enhance bicycle safety and convenience by providing direct routes that allow free-flow travel for
bicyclists at intersections where possible. Traffic controls are used at major intersections to help
bicyclists cross streets. Typically these modifications also calm traffic and improve pedestrian
safety. Bicycle boulevards may also be referred to as “neighborhood greenways.” see also
Neighborhood Greenways

Bicycle comfort index (BCI) – A method to analyze the auto volumes, auto speeds and number of
auto lanes on existing bikeways and within defined ‘cycle zones’ and assign a comfort rating to the
bikeway. Generally off-street paths receive the highest rating because they are completely
separated from auto traffic. Results help identify existing bikeways on the regional bicycle
network that could be upgraded to increase bicyclists comfort. Metro’s BCI analysis was used in
the existing conditions step of developing the Regional Active Transportation Plan. Additional
data would be useful to refine the tool.

Bicycle district – An area with a concentration of transit, commercial, cultural, institutional

and/or recreational destinations where bicycle travel is attractive, comfortable and safe. Bicycle
districts are areas where high levels of bicycle use exist or a planned. Within a bicycle district,
some routes may be designated as bicycle parkways or regional bikeways, however all routes
within the bicycle district are considered regional. A new concept for the Regional Transportation
Plan and added to the regional bicycle network through the Regional Active Transportation Plan.
The Central City, Regional and Town Centers and Station Communities are identified as bicycle
districts.

Bicycle facilities – A general term denoting improvements and provisions made to accommodate
or encourage bicycling, including parking facilities, all bikeways and shared roadways not
specifically designated for bicycle use.

Bicycle parkway – A bicycle route designed to serve as a bicycle highway providing for direct and
efficient travel for large volumes of cyclists with minimal delays in different urban and suburban
environments and to destinations outside the region. These bikeways connect 2040 activity
centers, downtowns, institutions and greenspaces within the urban area. The specific design of a
bike parkway will vary depending on the land use context within which it passes through. These
bikeways could be designed as an off-street trail along a stream or rail corridor, a cycletrack along
a main street or town center, or a bicycle boulevard through a residential neighborhood.

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Bicycle routes – Link bicycle facilities together into a clear, easy to follow route using wayfinding
such as signs and pavement markings, connecting major destinations such as town centers,
neighborhoods and regional destinations.

Bike (bicycle) lane – A portion of a roadway that has been designated by striping, signing and
pavement markings for the preferential or exclusive use of bicyclists.

Bike share – Systems like Biketown in Portland make fleets of bicycles available for short-term
rental within a defined service area. Some bike share systems now offer electric bikes.
Conventional bike share systems like Biketown in Portland are operated through exclusive
agreements between a private company and a public agency, and in most cases users must pick up
and leave bikes at designated stations, though Biketown and other modern systems also offer
users the option of locking a bike anywhere within the service area. Fully dockless systems
operated by companies such as Ofo, Lime bike and Spin allow users to pick up and leave bikes (or
electric scooters, which many companies now offer) within a defined service area and require less
coordination between the public and private sector.

Bike-transit facilities – Infrastructure that provide connections between the two modes, by
creating a “bicycle park-and-ride,” a large-scale bike parking facility at a transit station.

Bikeable – A place where people live within biking distance to most places they want to visit,
whether it is school, work, a grocery store, a park, church, etc. and where it is easy and
comfortable to bike.

Bikeway – Any road, street, path or right-of-way that is specifically designated in some manner as
being open to bicycle travel, either for the exclusive use of bicycles or shared use with other
vehicles or pedestrians, including separated bike paths, striped bike lanes or wide outside lanes
that accommodate bicycles and motor vehicles.

Bipartisan Infrastructure Law – The Infrastructure Investment and Jobs Act (IIJA) (Public Law
117-58, also known as the “Bipartisan Infrastructure Law”) is the Federal transportation bill
signed into law November 15, 2021 by President Biden. The Bipartisan Infrastructure Law is the
largest long-term investment in infrastructure and economy in the history of the United States.

Capacity – A transportation facility’s ability to accommodate a moving stream of people or

vehicles in a given place during a given time period. Increased capacity can come from building
more streets or throughways, adding more transit service, timing traffic signals, adding turn lanes
at intersections or many other sources. Certain faciliites that increase motor vehicle capacitty
must be reviewed as provided for in OAR 660-012-0830: (A) A new or extended arterial street,
highway, freeway, or bridge carrying general purpose vehicle traffic; (B) New or expanded
interchanges; (C) An increase in the number of general purpose travel lanes for any existing
arterial or collector street, highway, or freeway; and (D) New or extended auxiliary lanes with a
total length of one-half mile or more.

Notwithstanding any provision in subsection (a) of OAR 660-012-0830, subsection (b) includes
exceptions to enhanced review for certain proposed facilities: (A) Changes expected to have a

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capital cost of less than $5 million; (B) Changes that reallocate or dedicate right of way to provide
more space for pedestrian, bicycle, transit, or high-occupancy vehicle facilities; (C) Facilities with
no more than one general purpose travel lane in each direction, with or without one turn lane; (D)
Changes to intersections that do not increase the number of lanes, including implementation of a
roundabout; (E) Access management, including the addition or extension of medians; (F)
Modifications necessary to address safety needs; or (G) Operational changes, including changes to
signals, signage, striping, surfacing, or intelligent transportation systems. .See also definitions
Auxiliary lane and Congestion Management Process.

Capital project – A capital project is a project to construct either new facilities or make
significant, long-term renewal improvements to existing facilities.

Car share – Services allow people to rent a nearby vehicle for short trips and pay only for the time
that they use. Different car share service types include:

• Stationary car share (ZipCar, in some cases ReachNow), under which cars are kept at fixed
stations and users pick up cars from and return them to the same station.

• Free-floating car share (Car2Go, ReachNow), which allows people to pick up and drop off
cars anywhere within a defined service area.

• Peer-to-peer car share (Getaround, Turo), which enables people to rent cars from their
neighbors on a short-term basis.

Central city (2040 Design Type) – Downtown Portland and adjacent areas (like Lloyd District)
within the city of Portland.

Climate change – Any significant change in the measures of climate lasting for an extended
period of time. Climate change includes major variations in temperature, precipitation or wind
patterns, among other environmental conditions, that occur over several decades or longer.
Changes in climate may manifest as a rise in sea level, as well as increase the frequency and
magnitude of extreme weather events now and in the future.

Collector street – A class of street. Collector streets provide both access and circulation between
residential, commercial, industrial and agricultural community areas and the arterial system. As
such, collectors tend to carry fewer motor vehicles than arterial streets, with reduced travel
speeds. Collector streets are usually spaced at half–mile intervals, midway between arterial
streets. Collectors may serve as bike, pedestrian and freight access routes providing local
connections to the arterial street network and transit system.

Community places – Destinations and gathering places such as hospitals and other medical
services, civic places, such as post offices, churches, social services, libraries, schools and colleges,
financial institutions, such as banks and credit unions, grocery stores, and retail services, such as
hardware stores, pharmacies and laundry services

Commute – Regular travel between home and work or school.

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Commuter rail – Short–haul rail passenger service operated within and between metropolitan
areas and neighboring communities. This transit service operates in a separate right–of–way on
standard railroad tracks, usually shared with freight use. The service is typically focused on peak
commute periods but can be offered other times of the day and on weekends when demand exists
and where rail capacity is available. The stations are typically located one or more miles apart,
depending on the overall route length. Stations offer infrastructure for passengers, bus and LRT
transfer opportunities and parking as supported by adjacent land uses. See also Inter–city rail.

Complete streets – A transportation policy and design approach where streets are designed,
operated and maintained to enable safe, convenient and comfortable travel and access for users of
all ages and abilities, regardless of their mode of transportation.

Complete streets project checklist – A Project Checklist that is circulated for a sign-off from
various agency departments when street designs are in process to ensure coordinationto ensure
projects implement Complete Street elements.

Congestion – A condition characterized by unstable traffic flows that prevents movement on a

transportation facility at optimal legal speeds. Recurrent congestion is caused by constant excess
volume compared with capacity. Nonrecurring congestion is caused by incidents such as bad
weather, special events and/or traffic accidents.

Congestion management – The application of strategies to improve transportation system

performance and reliability by reducing the adverse impacts of congestion on the movement of
people and goods. See Appendix L for more information.

Congestion management process (CMP)– A systematic and regionally-accepted approach for

managing congestion that provides accurate, up-to-date information on transportation system
performance and assesses alternative strategies for congestion management that meet state,
regional and local needs. This systematic approach is required in transportation management
areas (TMAs) to provide for effective management and operation, based on a cooperatively
developed and implemented metropolitan-wide strategy, of new and existing transportation
facilities eligible for funding under title 23 U.S.C., and title 49 U.S.C., through the use of travel
demand reduction and operational management strategies.

Section 3.3.4 of the RTP describes the congestion management process policy to analyze and
implement system and demand management strategies and/or a combination of other strategies
(e.g. pedestrian, bicycle, transit strategies) prior to building new motor vehicle capacity,
consistent with the Federal Congestion Management Process (CMP) and the Oregon
Transportation Plan policies (including Oregon Highway Plan Policy 1G). Sections 3.08.220 and
3.08.510 of the Regional Transportation Functional Plan (RTFP) further direct how cities and
counties implement the CMP in the local transportation system planning process. See Appendix L
for more information on the Congestion Management Process.

Congestion Mitigation and Air Quality Improvement (CMAQ) Program – A federal source of
funding for projects and activities that reduce congestion and improve air quality, both in regions

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not yet attaining federal air quality standards and those engaged in efforts to preserve their
attainment status.

Connected vehicles (CVs) – Vehicles that communicate with each other, wireless devices or with
infrastructure like traffic signals and incident management systems. It seems increasingly likely
that vehicles in the near future will be automated and may include some connected elements, we
typically use “automated vehicles” to refer to vehicles that include a mix of automated and
connected elements, and only use “connected vehicles” to distinguish connected from automated
vehicles.

Connected vehicle (CV) infrastructure – This refers to the communications, wireless devices
and other infrastructure, such as traffic signals and roadside sensors, that offer the ability of
vehicles to send and receive message to other vehicles, wireless devices and communication
devices to communicate information in order to help them navigate the transportation system
safely and efficiently.

Connectivity – The degree to which the local and regional street, pedestrian, bicycle,
transit and freight systems in a given area are interconnected.

Consideration – One or more parties takes into account the opinions, action, and relevant
information from other parties in making a decision or determining a course of action.

Constrained budget – The budget of federal, state and local funds the greater Portland region can
reasonably expect through 2040 under current funding trends presuming some increased funding
compared to current levels.

Constrained list – Projects that can be built by 2040 within the constrained budget.

Consultation – One or more parties confer with other identified parties in accordance with an
established process and, prior to taking action(s), considers the views of the other parties and
periodically informs them about action(s) taken. This definition does not apply to the
“consultation” performed by the States and the Metropolitan Planning Organizations (MPOs) in
comparing the long-range statewide transportation plan and the metropolitan transportation
plan, respectively, to State and tribal conservation plans or maps or inventories of natural or
historic resources (see section 450.216(j) and sections 450.324(g)(1) and (g)(2)).

Context sensitive design – A model for transportation project development that requires
proposed transportation projects to be planned not only for its physical aspects as a facility
serving specific transportation objectives, but also for its effects on the aesthetic, social, economic
and environmental values, needs, constraints and opportunities in a larger community setting.

Cooperation – The parties involved in carrying out the transportation planning and programming
processes work together to achieve a common goal or objective.

Coordinated public transit-human services transportation plan – A locally developed,

coordinated transportation plan that identifies the transportation needs of individuals with
disabilities, older adults, and people with low incomes, provides strategies for meeting those local

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needs, and prioritizes transportation services for funding and implementation. Trimet leads
development of this plan for the region.

Coordination – The cooperative development of plans, programs, and schedules among agencies
and entities with legal standing and adjustment of such plans, programs, and schedules to achieve
general consistency, as appropriate.

Corridor – A broad geographical band that follows a general directional flow connecting major
sources of trips that may contain a number of streets, highways, freight, active transportation and
transit route alignments.

Corridors (2040 design type) – A type of land use that is typically located along regional transit
routes and arterial streets, providing a place for somewhat higher densities than is found in 2040
centers. These land uses should feature a high–quality pedestrian environment and convenient
access to transit. Typical new developments would include row houses, duplexes and one to
three–story office and retail buildings, and average about 25 persons per acre. While some
corridors may be continuous, narrow bands of higher–intensity development along arterial
streets, others may be more nodal, that is a series of smaller centers at major intersections or
other locations along the arterial that have high quality pedestrian environments, good
connection to adjacent neighborhoods and transit service.

Countermeasure – An activity, initiative or design element to prevent, neutralize, or correct a

specific safety problem.

Cordon pricing - Motorists are charged to enter a congested area, usually a city center or other
high activity area well served with non-driving transportation options. Cordon pricing is most
often implemented as flat or variable rate fees.

Crash – A violent collisionbetween tow or more motor vehicles (inlcuding commercial vehicles,
school buses, transit buses, etc.), or between a vehicle and a pedestrian, person on a bicycle or
motorcycle, scooter, or other type of micromobility, or with a stationary objectsuch as a pole or
guard rail.

Criteria pollutants – Carbon monoxide, lead, ground-level ozone, nitrogen oxides, particulate
matter, and sulfur dioxides. Criteria pollutants are the only air pollutants with national air quality
standards that define allowable concentrations of these substances in ambient air.

Cycletrack – Bicycle lanes that are physically separated from motor vehicle and pedestrian travel.
A cycle track is an exclusive bike facility that has elements of a separated path and on-road bike
lane. A cycle track, while still within the roadway, is physically separated from motor traffic and is
distinct from the sidewalk. Cycle tracks may be one-way or two-way, and may be at road level, at
sidewalk level, or at an intermediate level. They all share in common some separation from motor
traffic with bollards, car parking, barriers or boulevards.

Cyclist – Person riding a bicycle.

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Data-driven safety analysis – Uses data to promote the integration of safety performance into all
roadway investment decisions. Broader implementing of quantitative safety analysis so that it
becomes an integral part of safety management and project development decision making in
order to lead to better targeted roadway investments that result in fewer fatal and serious injury
crashes. Decisions are compelled by data, rather than by intuition or by personal experience.

Deficiency – A performance, design or operational constraint that limits, but does not prohibit the
ability to travel by a given mode. Examples include locations where throughway capacity is less
than six through lanes or that do not meet the travel speed thresholds defined in Table 3-5
(Mobility performance targets and thresholds), or that have poor or substandard design features;
at–grade rail crossings; height restrictions; bike and pedestrian connections that contain obstacles
(e.g., missing curb ramps, distances greater than 330 feet between pedestrian crossings, absence
of pedestrian refuges, sidewalks occluded by utility infrastructure, high traffic volumes and
complex traffic environments); transit overcrowding, inadequate frequency, or schedule
unreliability; and high crash locations). A deficiency is a transportation need. See also gap.

Delay – The additional travel time required by all travelers, as measured by the time needed to
reach destinations at posted speed limits (free–flow speed) versus traveling at a slower congested
speed. Delay can be expressed in several different ways, including total delay in vehicle–hours,
total delay per vehicle miles traveled (VMT) and share of delay by time period, day of week or
speed range.

Design type – The conceptual areas depicted on the Metro 2040 Growth Concept Map and
described in the Regional Framework Plan, including Central City, Regional Center, Town Center,
Station Community, Corridor, Main Street, Inner Neighborhood, Outer Neighborhood, Regionally
Significant Industrial Area, Industrial Area and Employment Area.

Diversion - Diversion is the movement of automobile trips from one facility to another because of
pricing implementation. All trips that change their route in response to pricing are considered
diversion, regardless of length or location of the trip, or whether they divert to or from the priced
facility.

Dynamic rate fee - Fee rates are continually adjusted according to traffic conditions to better
achieve a free-flowing level of traffic. Under this system, fee rates increase when the priced
facilities get relatively full and decrease when the priced facilities get less full. This system is more
complex and less predictable than using a flat or variable rate fee structure, but its flexibility helps
to better achieve the optimal traffic flow by reflecting changes in travel demand. MDynamic fee
systems may sometimes include a pre-set maximum price. The current price is often displayed on
electronic signs prior to the beginning of the priced facility.

Electric vehicles (EVs) – Vehicles that use electric motors for propulsion instead of or in addition
to gasoline motors.

Emergency – Any human-made or natural event or circumstance causing orthreatening loss of

life, injury to person or property, and includes, but is not limited to, fire, explosion, flood, severe

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weather, drought earthquake, volcanic activity, spills or releases of oil or hazardous material,
contamination, utility or transportation disruptions, and disease.

Emergency medical services (EMS) – The treatment and transport of people in crisis health
situations that may be life threatening. Emergency medical support is applied in a wide variety of
situations, including traffic crashes.

Emergency transportation routes – Priority routes used during and after a major regional
emergency or disaster to move people and response resources, including the transport of first
responders (e.g., police, fire and emergency medical services), fuel, essential supplies and patients.

Emerging technologies – A blanket term that we use throughout this plan to refer to new
developments in transportation technology. We use it to refer both to technologies like automated
vehicles or smart phones and services that operate using these technologies, like car and bike
share.

Employer-based commute programs – Work-based travel demand management programs that

can include transportation coordinators, employer-subsidized transit pass programs, ride-
matching, carpool and vanpool programs, telecommuting, compressed or flexible work weeks and
bicycle parking and showers for bicycle commuters.

Employment areas – Areas of mixed employment that include various types of manufacturing,
distribution and warehousing uses, and may include commercial and retail development. Retail
uses should primarily serve the needs of the people working or living in the immediate
employment area. Exceptions to this general policy can be made only for certain areas indicated in
a functional plan.

Employment lands – Areas of mixed employment that include various types of manufacturing,
distribution and warehousing uses, and may include commercial and retail development.

Environmental justice – The fair treatment and meaningful involvement of all people regardless
of race, color, national origin, or income with respect to the development, implementation, and
enforcement of environmental laws, regulations, and policies. (EPA definition)

Environmental justice populations – People living in poverty, people with low-income as

determined annually by the U.S. Department of Health and Human Services Low-Income Index,
people of color, elderly, children, people with disabilities, and other populations protected by Title
VI and related nondiscrimination statutes.

Environmental mitigation activities – Strategies, policies, programs, and actions that, over time,
will serve to avoid, minimize, rectify, reduce, or eliminate impacts to environmental resources
associated with the implementation of a long-range statewide transportation plan or metropolitan
transportation plan.

Equitable Development – An approach to creating healthy, vibrant, communities of opportunity

by creating coordinated, intentional strategies to ensure that everyone (residents of all incomes,
races and ethnicities) can participate in, and benefit from, decisions that shape their

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neighborhoods and region. This approach involves investments, policies, and protections to
prevent displacement of vulnerable residents, businesses, and community organizations.

Equitable Outcomes – Means outcomes that burdens underserved populations less than and
benefits underserved populations as much or more as the city or county population as a whole.
Examples of equitable outcomes include: (a) Increased stability of underserved populations,
lowering the likelihood of displacement due to gentrification from public and private investments;
(b) More accessible, safe, affordable and equitable transportation options with better connectivity
to destinations people want to reach; (c) Adequate housing with access to employment, education,
fresh food, goods, services, recreational and cultural opportunities, and social spaces; (d)
Increased safety for people in public spaces, transportation and community development; (e)
Equitable access to parks, nature, open spaces, and public spaces; (f) Better and more racially
equitable health outcomes across the lifespan, particularly health outcomes connected to
transportation choices, air pollution, and food; (g) Recognizing and remedying impacts of past
practices such as redlining, displacement, exclusionary zoning, and roadway and other public
infrastructure siting decisions that harmed underserved communities; and (h) Fairly-distributed
benefits to residents and local governments across cities and counties within metropolitan areas.

Equity – Just and fair inclusion into a society in which all can participate, prosper, and reach their
full potential. In transportation, a normative measure of fairness among transportation system
users. See also Racial equity, Social equity, and Transportation equity.

Equity focus areas – Census tracts with higher than regional average concentrations and double
the density of one or more of the following: people of color, English language learners, and/or
people with lower income. Most of these areas also include higher than regional average
concentrations of other historically marginalized communities, including young people, older
adults and people living with disabilities.

Excessive delay – The extra amount of time spent in congested conditions defined by speed
thresholds that are lower than a normal delay threshold. For the purposes of MAP-21 target-
setting, the speed threshold is 20 miles per hour (mph) or 60 percent of the posted speed limit,
whichever is greater.

Extreme events – This term refers to risks posed by climate change and extreme weather events.
The definition does not apply to other uses of the term nor include consideration of risks to the
transportation system from other natural hazards, accidents, or other human induced disruptions.

Extreme weather events – Significant anomalies in temperature, precipitation and winds and
can manifest as heavy precipitation and flooding, heatwaves, drought, wildfires and windstorms
(including tornadoes). Consequences of extreme weather events can include safety concerns,
damage, destruction and/or economic loss. Climate change can also cause or influence extreme
weather events.

Facility – The fixed physical assets (structures) enabling a transportation mode to operate
(including travel, as well as the loading and unloading of goods and passengers). This includes

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streets, throughways, bridges, sidewalks, bikeways, transit stations, bus stops, ports, air and
marine terminals and rail lines and yards.

Federal Highway Administration (FHWA) – The U.S. Department of Transportation agency

responsible for administering the federal highway aid program to individual states, and helping to
plan, develop and coordinate construction of federally-funded highway projects. FHWA also
governs the safety of hazardous cargo on the nation’s highwaysThe FHWA implements
transportation legislation approved at the congressional level that appropriates all federal funds
to states, MPOs and local governments.

Federal Transit Administration (FTA) – U.S. Department of Transportation agency that

provides financial and planning assistance to help plan, build and operate rail, bus and paratransit
systems. The agency also assists in the development of local and regional traffic reduction
programs.

Federally recognized tribal lands - Refers an area of land reserved for a Tribe or Tribes under
treaty or other agreement with the United States, executive order, or federal statute or
administrative action as permanent Tribal homelands, and where the federal government holds
title to the land in trust on behalf of the Tribe. Approximately 56.2 million acres are held in trust
by the United States for various Indian Tribes and individuals. Some reservations are the
remnants of a Tribe’s original land base. Others were created by the federal government for the
resettling of Indian people forcibly relocated from their homelands. Not every federally
recognized Tribe has a reservation. Federal Indian reservations are generally exempt from state
jurisdiction, including taxation, except when Congress specifically authorizes such jurisdiction.

Federally recognized tribe - Refers an American Indian or Alaska Native Tribal entity that is
recognized as having a government-to-government relationship with the United States, with the
responsibilities, powers, limitations, and obligations attached to that designation, and is eligible
for funding and services from the Bureau of Indian Affairs. Furthermore, Federally recognized
Tribes are recognized as possessing certain inherent rights of self-government (i.e., Tribal
sovereignty) and are entitled to receive certain federal benefits, services, and protections because
of their special relationship with the United States. At present, there are 574 federally recognized
American Indian and Alaska Native Tribes and villages.

Financial plan – Documentation required to be included with a metropolitan transportation plan

and TIP (and optional for the long-range statewide transportation plan and STIP) that
demonstrates the consistency between reasonably available and projected sources of Federal,
State, local, and private revenues and the costs of implementing proposed transportation system
improvements.

Financially constrained or fiscal constraint – This means that the metropolitan transportation
plan, TIP, and STIP includes sufficient financial information for demonstrating that projects in the
metropolitan transportation plan, TIP, and STIP can be implemented using committed, available,
or reasonably available revenue sources, with reasonable assurance that the federally supported
transportation system is being adequately operated and maintained.

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Fiscal (or financial) constraint – A federal requirement that long-range transportation plans
and four-year Metropolitan Transportation Improvement Programs (MTIP) include only projects
that have a reasonable expectation of being funded, based upon anticipated revenues (for the
long-range transportation plan) or secured revenues (for the four-year TIP). In other words, long-
range transportation plans or TIP cannot be a wish lists of projects; they must reflect realistic
assumptions about revenues that will likely be available or secured.

Fixing America’s Surface Transportation Act (FAST Act) – A funding and authorization bill to
govern United States federal surface transportation spending, signed by President Obama on
December 4, 2015. The FAST Act established funding levels and federal policy for highways and
public transit systems for fiscal years 2016-2020. The $305 billion, five-year bill maintained the
core highway and transit funding programs established by its predecessor MAP-21, and
established the National Highway Freight Program, a formula program focused on goods
movement.

Flat rate fee (toll) - A flat rate fee, also known as a toll, charged by a toll facility operator in an
amount set by the operator for the privilege of traveling on said toll facility. Tolling is a user fee
system for specific infrastructure such a bridges and tunnels. Toll revenues are used for costs
associated with the tolled infrastructures. This tool is used to raise funds for construction,
operations, maintenance, and administration of specific infrastructure. Flat rate tolling can also
serve as a method for congestion management, though it is not responsive to changing conditions
or time of day. Additionally, flat rate tolling cannot be used for congestion pricing programs or
projects authorized by the Value Pricing Pilot Program, Congestion Relief Program, or Section 166
on interstate highways under Federal law.

Forecast – Projection of population, employment or travel demand for a given future year.

Freeway – A design for highway in which all access points are grade separated. Directional travel
lanes usually separated by a physical barrier, and access and egress points are limited to on–and
off–ramp locations or a very limited number of at–grade intersections. In the RTP freeways are
indentified with the Throughway classification.

Freight intermodal facility – An intercity facility where freight is transferred between two or
more freight modes (e.g., truck to rail, rail to ship, truck to air).

Freight mobility – The efficient movement of goods from point of origin to destination.

Freight modes – Freight modes are the means by which freight achieves mobility. These modes
fall into five basic types: road (by truck), rail, pipeline, marine (by ship or barge) and air.

Freight rail – A freight train that is a group of freight cars hauled by one or more locomotives on a
railway, transporting cargo all or some of the way between the shipper and the intended
destination.

Frequent bus – Frequent bus service offers local and regional bus service with stops
approximately every 750 to 1000 feet (between 5 and 7 every mile), providing corridor service

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rather than nodal service along selected arterial streets based on demand. This service typically
runs at least every 15 minutes throughout the day and on weekends though frequencies may
increase based on demand, and it can include transit preferential treatments, such as reserved bus
lanes and transit signal priority, and enhanced passenger infrastructure along the corridor and at
major bus stops, such as covered bus shelters, curb extensions, special lighting and median
stations.

Full Funding Grant Agreement (FFGA) – An instrument that defines the scope of a project, the
Federal financial contribution, and other terms and conditions for funding New Starts projects
Functional classification – The class or group of roads to which the road belongs. There are three
main motor vehicle functional classes as defined by the United States Federal Highway Administration:
arterial, collector, and local. Throughways and freeways fall under arterial in the federal classification
system. Classifications also exist for biking and walking networks. These definitions can be found
elsewhere in the glossary: bicycle parkway, regional bikeway, local bikeway, pedestrian parkway,
pedestrian corridor and local pedestrian connector.

Gap – A missing link or barrier in the “typical” urban transportation system for any mode that
functionally prohibits travel where a connection might be expected to occur in accordance with
the system concepts and networks in Chapter 3 of the RTP. A gap generally means a connection
does not exist at all, but could also be the result of a physical barrier such as a throughway, natural
feature, weight limitations on a bridge or existing development. Gaps are a transportation need.
See also deficiency.

Goal – A broad statement that describes a desired [Link] are steps taken to make
progress toward goals.

Greenhouse gas emissions – The six gases identified in the Kyoto Protocol and by the Oregon
Greenhouse Gas Mandatory Reporting Advisory Committee as contributing to global climate
change: carbon dioxide (CO2), nitrous oxide (N2), methane (CH4), hydrofluorocarbons (HFCs),
perfluorocarbons (PFCs), and sulfur hexafluoride (SF6). Greenhouse gases absorb solar radiation
and act like a heat-trapping blanket in the atmosphere, causing climate change. More information
is available at [Link]/climatechange.

Green infrastructure – A network of multi-functional green spaces and environmental features,

both natural and engineered, that use or replicate natural systems to better manage stormwater,
protect streams and enhance wildlife corridors—trees, soils, water and habitats. Examples
include: permeable paving, vegetated swales, rain gardens, green streets, green roofs, green walls,
urban forestry, street trees, parks, green corridors such as trails, and other low impact
development practices.

Green streets – An innovative stormwater management approach that captures rain where it
falls by using vegetation, soil and engineered systems to slow, filter and clean stormwater runoff
from impervious surfaces.

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Greenways – Greenways generally follow rivers and streams and may or may not provide for
public access. In some cases, greenways may be a swath of protected habitat along a stream with
no public access. In other cases, greenways may allow for an environmentally compatible trail,
viewpoint or canoe launch site. The greenways that are identified in Metro’s regional trails plan
do not presently offer public access. Usage of the term “greenway” can be ambiguous because it is
sometimes used interchangeably with the word “trail.” For example, “Fanno Creek Trail”, “Fanno
Creek Greenway”, and “Fanno Creek Greenway Trail” are used with equal frequency for the same
trail. Trail and greenway professional prefer to make the technical distinction that the “trail”
refers to the tread or the actual walking service, while the “greenway” refers to the surrounding
park or natural corridor.

Health impact assessment – A combination of procedures, methods, and tools by which a policy,
program or project may be evaluated as to its potential effects on the health of a population, and
the distribution of these effects within the population.

High capacity transit – High capacity transit is public transit that can have exclusive right of way,
non-exclusive right of way, or a combination of both. Vehicles make fewer stops, travel at higher
speeds, have more frequent service and carry more people than local service transit such as
typical bus lines. It includes:
• Light rail uses high capacity trains (68 seats with room and design for several passengers to
stand) and focuses on regional mobility with stops typically one-half to 1 mile apart,
connecting concentrated housing or local bus hubs and employment areas. The service has its
own right of way. Cars can be doubled, and service frequency increased, during peak hours.
• Commuter rail uses high capacity heavy rail trains (74 seats in a single car, 154 in doubled
cars), typically sharing right of way with freight or other train service (though out of roadway).
The service focuses on connecting major housing or local bus hubs and employment areas with
few stops and higher speeds. The service may have limited or no non-peak service.
• Bus rapid transit uses coach-style or high capacity busses (40-60 seats with room and design
for several passengers to stand). The service may be in the roadway with turnouts and signal
priority for stops, have an exclusive right of way, or be some combination of the two. The
service focuses on regional mobility, with higher speeds, fewer stops, higher frequency and
more substantial stations than local bus, connecting concentrated housing or local bus hubs
and employment areas. Service frequency can be increased during peak hours.
• Using the same technology as local streetcar, rapid streetcar focuses on regional mobility,
offering fewer stops and primarily running in exclusive right of way to connect housing areas
to jobs or other destinations. Cars can be doubled, and service frequency increased, during
peak hours. The service operates in mixed traffic, in exclusive right of way or a combination of
the two. Local streetcar also helps extend the reach of the high capacity transit network by
acting as a circulator within the Central City and between dense urban regional centers in close
proximity.

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High crash location – Highway or road segments identified by the frequency and severity of
motor vehicle crashes. Identification of high crash locations is part of the safety problem
identification process.

High injury corridors and intersections (RTP) – Roadways where the highest concentrations of
fatal and severe injury crashes involving people in cars, biking and walking occur on the regional
transportation system Corridors and intersections were analyzed to determine aggregate crash
scores based on the frequency and severity of crashes, using the following methodology:

• Fatal and Injury A (serious) crashes for all modes are assigned to the network;

• "Injury B", "Injury C", and "PDO (property damage only)" crashes involving bikes and
pedestrians are also assigned to the network;

• Fatal and Injury A crashes are given a weight of 10;

• Roadways are analyzed in mile segments; if a segment has only one Fatal or Injury A crash
it must also have at least one B/C (minor injury) crash, for the same mode, to be included
in the analysis.; and

• Roadway segments are assigned an N-score (or “crash score”) by calculating the weighted
sum by mode and normalizing it by the roadway length.

To reach 60 percent of Fatal and Severe Injury crashes, roadway segments had to have an N-score
of 39 or higher; high injury Bicycle Corridors had to have an N-score of 6 or more, and high injury
Pedestrian Corridors had to have an N-score of 15 or more. Intersections with the highest
weighted crash scores were also identified; 5 percent of intersections had an N-score (or “crash
score”) higher than 80 and are also shown on the map, and 1 percent of intersections (the top 1
percent) had to have an N-score higher than 128.

High risk roadways – Characteristics if high risk roads are identified by looking at crash history
on an aggregate basis to identify particular severe crash types (e.g. pedestrian) and then use the
roadway characteristics associated with particular crash types (e.g. arterial roadways with four-or
more lanes, posted speed over 35 mph, unlit streets) to understand which roadways may have a
higher risk of the same type of severe crash.

High–occupancy vehicle (HOV) – A vehicle carrying more than two passengers with the
exception of motorcycles.

High-occupancy vehicle lane – The technical term for a carpool lane. See also high-occupancy
vehicle.

Highway – A design for a Throughway in which access points are a mix of separate and at–grade.

Incident management – The detection and verification of incidents (crashes, stalled vehicles, etc.
blocking traffic) and the implementation of appropriate actions to clear the highway.

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Indigenous - Refers to ethnic groups who are the descendants of the original peoples or earliest
known inhabitants of an area, as opposed to ethnic groups that have settled, occupied or colonized
the area more recently. This term includes native and aboriginal peoples from across the planet,
including those native to the Americas, Asia, Pacific Island nations and more.

Induced demand – The process whereby improvements in the transportation system intended to
alleviate congestion and delay result in additional demand for the transportation segment,
offsetting some of the improvement’s potential benefits. For instance, when a congested roadway
is expanded from 2 to 3 lanes, some drivers will recognize the increased capacity and take this
roadway though they had not done so previously. See also capacity.

Industrial areas – Areas set aside for industrial activities. Supporting commercial and related
uses may be allowed, provided they are intended to serve the primary industrial users.
Residential development and retail users whose market area is larger than the industrial area are
not considered supporting uses.

Intelligent transportation systems (ITS) – Electronics, photonics, communications, or

information processing used singly or in combination to improve the efficiency or safety of the
transportation system. ITS can include both vehicle-to-vehicle communication (which allows cars
to communicate with one another to avoid crashes and vehicle-to-infrastructure communication
(which allows cars to communicate with the roadway) to identify congestion, crashes or unsafe
driving conditions, manage traffic flow, or provide alternate routes to travelers.

Intercity transit – Intercity transit includes service that goes beyond regional boundaries to
serve people traveling to destinations in and out of our region, connecting regions and even states.
Intercity rail refers to passenger rail service that provides transportation between cities or
metropolitan areas at speeds and distances greater than that of commuter or regional rail.

Intermodal connector – A road that provides connections between major rail yards, marine
terminals, airports, and other freight intermodal facilities; and the freeway and highway system
(the National Highway System).

Intermodal facilities – A transportation element that allows passenger and/or freight

connections between modes of transportation. Examples include airports, rail stations, marine
terminals, and rail–yards that facilitate the transfer of containers or trailers. See also passenger
intermodal facility .

Local bikeways – Trails, streets and connections not identified as regional bicycle routes, but are
important to a fully functioning network. Local bikeways are the local collectors of bicycle travel.
They are typically shorter routes with less bicycle demand and use. They provide for door-to-door
bicycle travel.

Local jurisdiction – For the purpose of this plan, this term refers to a city or county within the
Metro boundary.

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Local pedestrian connectors – All streets and trails not included on the regional network. Local
connectors experience lower volumes of pedestrian activity and are typically on residential and
low-volume/speed roadways or smaller trails. Connectors, however, are an important element of
the regional pedestrian network because they allow for door-to-door pedestrian travel.

Local streets or roads – Local streets primarily provide direct access to adjacent land. While
Local streets are not intended to serve through traffic, the aggregate effect of local street design
impacts the effectiveness of the arterial and collector system when local travel is restricted by a
lack of connecting routes, and local trips are forced onto the arterial street network. In the urban
area, local roadway system designs often discourage “through traffic movement.” Regional
regulations require local street connections spaced no more than 530 feet in new residential and
mixed used areas, and cul–de–sacs are limited to 200 feet in length. These connectivity
requirements ensure that a lack of adequate local street connections does not result in the arterial
system becoming congested. While the focus for local streets has been on motor vehicle traffic,
they are developed as multi–modal facilities that accommodate bicycles, pedestrians and
sometimes transit.

Low-carbon travel options - Low-carbon travel options include walking, rolling, biking, transit,
and electric vehicles.

Low emissions zone pricing - Similar to cordon pricing, drivers are charged when they enter a
Low Emissions Zone, unless they have a vehicle that meets the requirements of the Low Emissions
Zone, for example an electric vehicle that does not emit tailpipe emissions when only using
electricity to run.

Lower income focus area – Census tracts with higher than regional average concentrations and
double the density of people with lower income. Lower income is defined as households with
incomes below 200 percent of the federal poverty level, adjusted for household size (i.e., with
incomes up to twice the level of poverty), as defined by the U.S. Census.

Main line rail – Class I rail lines (e.g., Union Pacific and Burlington Northern/Santa Fe).

Main roadway routes – Designated freights routes that are freeways and highways that connect
major activity centers in the region to other areas in Oregon or other states throughout the U.S.,
Mexico and Canada.

Major transit stop – Existing and planned light rail stations and transit transfer stations, except
for temporary facilities and other existing and planned transit stops which:

(A) Have or are planned for an above average frequency of scheduled, fixed-route service
when compared to region wide service. In urban areas of 1,000,000 or more
population major transit stops are generally located along routes that have or are
planned for 20 minute service during the peak hour; and

(B) Are located in a transit oriented development or within 1/4 mile of an area planned
and zoned for:

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 (i) Medium or high density residential development; or

(ii) Intensive commercial or institutional uses within 1/4 mile of subsection (i); or

(iii) Uses likely to generate a relatively high level of transit ridership.

Marginalized communities – Communities of people that have been historically excluded from
critical aspects of social participation including, voting, education, housing and more. Historical
marginalization is often a result of systematic exclusion based on devaluation of any individual
existing outside of the dominant culture. For purposes of the RTP, this includes people of color,
people with limited English proficiency, people with lower-incomes, youth, older adults and
people living with a disability.

Marine facilities – A facility where freight is transferred between water–based and land–based
modes.

Meaningful involvement – This term means that the public should have opportunities to
participate in decisions that could affect their environment and their health, their contributions
should be taken into account by regulatory agencies, and decision-makers should seek and
facilitate the engagement of those potentially affected by their decisions. (from EPA)

Measure – An expression based on a metric that is used to establish targets and to assess
progress toward achieving the established targets.

Metric – A quantifiable indicator of performance or condition.

Metropolitan Greenspaces Master Plan (1992) – Details the vision, goals and organizational
framework of a regional system of natural areas, trails and greenways for wildlife and people in
the region, and set the foundation for subsequent bond measures and trail plans.

Metropolitan Planning Area Boundary (MPA) – The geographic area determined by agreement
between the Metropolitan Planning Organization (MPO) and the Governor, in which the
metropolitan transportation planning process is carried out by the MPO.

Metropolitan Planning Organization (MPO) – A federally-required policy body responsible for

the transportation planning, project selection and scheduling the use of federal transportation
funds in its region. Governed by policy board, MPOs are required in urbanized areas with
populations more than 50,000 and are designated by the governor of the state. JPACT and the
Metro Council constitute the MPO for the Portland region. The MPO conducts federally mandated
transportation planning work, including: a long-range Regional Transportation Plan (RTP), the
Metropolitan Transportation Improvement Program (MTIP) for capital improvements identified
for a four-year construction period, allocates federal transportation funding through the Regional
Flexible Funds process (RFFA), a Unified Planning Work Program (UPWP), a congestion
management process (CMP), federal performance-based planning and target-setting and
conformity to the state implementation plan for air quality for transportation related emissions.

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Metropolitan Transportation Improvement Program (MTIP) – The MTIP includes all federally
funded transportation projects in the Portland metropolitan planning area, including projects
planned by TriMet, the Oregon Department of Transportation and local agencies receiving federal
funds allocated by Metro. The MTIP is incorporated in the Statewide Transportation Improvement
Program (STIP), which identifies the state’s four-year transportation capital improvements. See
also transportation improvement program.

Metropolitan transportation plan – The official multimodal transportation plan addressing no

less than a 20-year planning horizon that the MPO develops, adopts, and updates through the
metropolitan transportation planning process. The Regional Transportation Plan is metropolitan
transportation plan for the Portland region. Microtransit – Services such as Via, and others, can
differ from conventional transit service in several different ways:

• Dynamic routing: Some microtransit services operate on flexible routes to pick up and
drop off riders nearer to their origins and destinations. Services may deviate from a fixed
route to make pickups and dropoffs, crowdsource routes from data provided by riders or
make stops anywhere within a defined service area.

• On-demand scheduling: Instead of operating on a fixed schedule, microtransit services

may allow riders to request a ride when they need it.

• Smaller vehicles: Microtransit services often use vans or small buses instead of 40-
passenger buses.

• Private operation: Many microtransit services are privately operated or operated through
partnerships between public agencies and private companies.

We distinguish between microtransit that is coordinated with public transit, for example services
that connect people to high-frequency transit or operate in areas that are hard to serve with
conventional transit, and luxury microtransit that serve existing transit routes and offer more
space or amenities than a public bus at a higher cost.

Microtransit – Services such as Via, Chariot and Leap can differ from conventional transit service
in several different ways:

• Dynamic routing: Some microtransit services operate on flexible routes to pick up and
drop off riders nearer to their origins and destinations. Services may deviate from a fixed
route to make pickups and dropoffs, crowdsource routes from data provided by riders or
make stops anywhere within a defined service area.

• On-demand scheduling: Instead of operating on a fixed schedule, microtransit services

may allow riders to request a ride when they need it.

• Smaller vehicles: Microtransit services often use vans or small buses instead of 40-
passenger buses.

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 • Private operation: Many microtransit services are privately operated or operated through
partnerships between public agencies and private companies.

We distinguish between microtransit that is coordinated with public transit, for examples services
that connect people to high-frequency transit or operate in areas that are hard to serve with
conventional transit, and luxury microtransit that serve existing transit routes and offer more
space or amenities than a public bus at a higher cost.

Mileage Based User Fee – See Road Usage Charge

Mitigation – Planning actions taken to avoid an impact altogether, minimize the degree or
magnitude of the impact, reduce the impact over time, rectify the impact, or compensate for the
impact. Mitigation includes:

(a) Avoiding the impact altogether by not taking a certain action or parts of an action.

(b) Minimizing impacts by limiting the degree or magnitude of the action and its
implementation.

(c) Rectifying the impact by repairing, rehabilitating, or restoring the affected environment.

(d) Reducing or eliminating the impact over time by preservation and maintenance operations
during the life of the action.

(e) Compensating for the impact by replacing or providing substitute resources or

environments.

Mixed use – Comprehensive plan or implementing regulations that permit a mixture of

commercial and residential development.

Mixed-use development – Areas of a mix of at least two of the following land uses and includes
multiple tenants or ownerships: residential, retail and office. This definition excludes large, single-
use land uses such as colleges, hospitals, and business campuses.

Mobility – People and businesses can safely, affordably, and efficiently reach the goods, services,
places and opportunities they need to thrive by a variety of seamless and well-connected travel
options and services that are welcoming, convenient, comfortable, and reliable.

Mobility corridor – Mobility corridors represent subareas of the region and include all regional
transportation facilities within the subarea as well as the land uses served by the regional
transportation system. This includes freeways and highways and parallel networks of arterial
streets, regional bicycle parkways, high capacity transit, and frequent bus routes. The function of
this network of integrated transportation corridors is metropolitan mobility – moving people and
goods between different parts of the region and, in some corridors, connecting the region with the
rest of the state and beyond. This framework emphasizes the integration of land use and
transportation in determining regional system needs, functions, desired outcomes, performance
measures, and investment strategies.

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Modal targets – Performance targets for increased walking, biking, transit, shared ride and other
non-drive alone trips as a percentage of all trips made in a defined area. The targets apply to trips
to, from and within each 2040 Design Type. The targets reflect desired mode shares for each area
for the year 2040 needed to comply with Oregon Transportation Planning Rule objectives to
reduce reliance on single-occupant vehicles and per capita vehicle miles traveled.
Regional 2040 modal targets
2040 Design Type Non-drive alone
modal target
Portland central city 60-70%
Regional centers
Town centers
Main streets
45-55%
Station communities
Corridors
Passenger intermodal facilities
Industrial areas
Freight intermodal facilities
40-45%
Employment areas
Neighborhoods
Note: The targets apply to trips to, from and within each 2040 design type

Mode – A type of transportation distinguished by means used (e.g., such as walking, bike, bus,
single– or high–occupancy vehicle, bus, train, truck, air, marine).

Mode choice – The ability to choose one or more modes of transportation.

Mode share – The proportion of total person trips using various modes of transportation.

Motorcycle – A motor vehicle with motive power having a seat or saddle for the use of the rider
and designed to travel on not more than three wheels in contact with the ground. The NHTSA
defines “motorcycle” to include mopeds, two or three-wheeled motorcycles, off-road motorcycles,
scooters, mini bikes and pocket bikes.

Moving Ahead for Progress in the 21st Century Act (MAP-21 ) (P.L. 112-141) –
Reauthorization of Federal highway funding, signed into law by President Obama on July 6, 2012.
Subsequent adoption of the FAST Act does not replace MAP-21 in all areas regulation of
transportation safety planning and funding, so both must be referenced.

Multimodal – Transportation facilities or programs designed to serve many or all methods of

travel, including all forms of motor vehicles, public transportation, bicycles and walking.

Multimodal level of service – Multimodal level of service (MMLOS) is an analytical tool that
measures and rates users’ experiences of the transportation system according to their mode. It
evaluates not only drivers’ experiences, but incorporates the experiences of all other users, such
as cyclists and pedestrians.

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Must – When used in the context of actions and policies must means there is a legal obligation or
requirement to take the action or enact the policy. Must is often used interchangeably with shall.
Also see should.

National Highway System (NHS) – Title 23 of the U.S. Code section 103 states that the purpose of
the NHS is to provide an interconnected system of principal routes that serve major population
centers, international border crossings, ports, airports, public transportation facilities, intermodal
transportation facilities, major travel destinations, meet national defense requirements, and serve
interstate and inter–regional travel. Facilities included in the NHS are of regional significance.

National Performance Management Research Data Set (NPMRDS) – A data set derived from
vehicle/passenger probe data (sourced from Global Positioning Station (GPS), navigation units,
cell phones) that includes average travel times representative of all traffic on each mainline
highway segment of the National Highway System (NHS), and additional travel times
representative of freight trucks for those segments that are on the Interstate System. The data set
includes records that contain average travel times for every 15 minutes of every day (24 hours) of
the year recorded and calculated for every travel time segment where probe data are available.
The NPMRDS does not include any imputed travel time data.

Native American - Refers to the Indigenous peoples of the continental United States and its
territories. It arose in the 1960s as a word that was meant to include both American Indians and
Alaska Natives. Since then, its meaning has been expanded to include Native Hawaiians and
American Samoans, too.

Needs – see Transportaton needs.

Neighborhood Greenway - Neighborhood greenways are low-traffic and low-speed streets

where priority is given to people walking, bicycling, and rolling. Neighborhood greenways are
designed to provide a safe network that connects neighborhoods, parks, schools, and business
districts. see also Bicycle Boulevards

Network – Connected routes forming a cohesive system.

New mobility services – Transportation services like ride-hailing, microtransit and car and bike
share, which operate using smart phones and other emerging technologies. Many of these services
are privately operated by new mobility companies.

Non-motorized – Generally referring to bicycle, walking and other modes of transportation not
involving a motor vehicle.

Non-SOV travel – Any travel mode other than driving alone in a motorized vehicle (i.e., single
occupancy vehicle or SOV travel), including travel avoided by telecommuting.

Objective (in a plan) – A specific, measureable desired outcome and means for achieving a
goal(s) to guide action within the plan period.

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Off–peak hours – The hours outside of the highest motor vehicle traffic period, generally
between 9 a.m. and 3 p.m. and between 6 p.m. and 7 a.m.

Older adults (vulnerable) – The Moving Ahead for Progress in the 21st Century (MAP-21) Act
created a new Special Rule for older drivers and pedestrians under 23 USC 148(g)(2), which was
continued under the Fixing America's Surface Transportation (FAST) Act. If the rate per capita of
traffic fatalities and serious injuries for drivers and pedestrians over the age of 65 in a State
increases over the most recent 2-year period, this Special Rule requires a State to include
strategies to address the increases in those rates in their State Strategic Highway Safety Plan
(SHSP). FHWA issued the Section 148: Older Drivers and Pedestrians Special Rule Final Guidance
in May 2016.1 TriMet’s Coordinated Transportation Plan for Seniors and Persons With Disabilities
(2020) identifies several principles and actions related to addressing safety and security concerns
getting to and at transit stops and on transit. See Appendix G.

Operational and management strategies – Actions and strategies aimed at improving the
performance of existing and planned transportation facilities to relieve congestion and maximize
the safety and mobility of people and goods.

Oregon Transportation Commission (OTC) – The Oregon Transportation Commission is a five–

member governor–appointed government agency that manages the state highways and other
transportation in the state of Oregon, in conjunction with the Oregon Department of
Transportation.

Oregon Transportation Plan (OTP) – The official statewide intermodal transportation plan that
is developed through the statewide transportation planning process by ODOT and approved by
the Oregon Transportation Commission.

Parking management – Strategies that encourage more efficient use of existing parking facilities,
improve the quality of service provided to parking facility users, and improve parking facility
design. Examples include developing an inventory of parking supply and usage, reduced parking
requirements, shared and unbundled parking, parking-cash-out, priced parking, bicycle parking
and providing information on parking space availability. When used in conjunction with other
demand management strategies, parking management is an effective means of reducing drive-
alone auto trips and achieving GHG reductions. More information can be found at
[Link]/park_man.pdf

Parking pricing - Drivers pay to park in certain areas. Parking pricing may include flat, variable,
or dynamic fee structures. Dynamic pricing involves periodically adjusting parking fees to match
demand, this can be paired with technology which helps drivers find spaces in underused and less
costly areas.

1
U.S. Department of Transportation, Federal Highway Administration Older Drivers and Pedestrians Special Rule.
[Link]

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Passenger car equivalent – Passenger Car Equivalent (PCE) is a metric used in Transportation
Engineering, to assess traffic–flow rate on a highway. A PCE is essentially the impact that a mode
of transport has on traffic variables compared to a single car.

Passenger intermodal facilities – Facilities that accommodate or serve as transfer points to

interconnect various transportation modes for the movement of people. Examples include
Portland International Airport, Union Station, Oregon City Amtrak station and inter–city bus
stations.

Passenger rail – Inter–city passenger rail is part of the state transportation system and extends
from the Willamette Valley north to British Columbia. Amtrak already provides service south to
California, east to the rest of the continental United States and north to Canada. It is a transit
system that operates, in whole or part, on a fixed guide–way. These systems should be integrated
with other transit services within the metropolitan region with connections at passenger
intermodal facilities.

Passenger train – A railroad train for only passengers, rather than goods. Amtrak is the company
that controls the railroads that carry passengers in the U.S.

Passenger vehicles – Motor vehicles with at least four wheels, used for the transport of
passengers, and comprising no more than eight seats in addition to the driver's seat. Light
commercial vehicles are motor vehicles with at least four wheels, used for the carriage of goods.

Peak period or hours – The period of the day during which the maximum amount of travel
occurs. It may be specified as the morning (A.M.) or afternoon or evening (P.M.) peak. Peak
periods in the Portland metropolitan region are currently generally defined as from 7–9 AM and
4–6 PM.

Pedestrian – A person traveling on foot, in a wheelchair or in another health–related mobility

device.

Pedestrian comfort index (PCI)- Uses data such as auto volumes, auto speeds, number of auto
lanes, sidewalk existence and width, number of pedestrian crossings on existing roadways and
assigns a comfort rating for pedestrians. Results help identify roadways on the regional
pedestrian network that could be upgraded to increase bicyclists comfort. Metro has collected and
analyzed initial data for the regional pedestrian network but has not created a PCI. Additional data
and analysis is needed.

Pedestrian connection – A continuous, unobstructed, reasonably direct route between two

points that is intended and suitable for pedestrian use. Pedestrian connections include but are not
limited to sidewalks, walkways, accessways, stairways and pedestrian bridges. On developed
parcels, pedestrian connections are generally hard surfaced. In parks and natural areas,
pedestrian connections may be soft-surfaced pathways. On undeveloped parcels and parcels
intended for redevelopment, pedestrian connections may also include rights-of-way or easements
for future pedestrian improvements.

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Pedestrian corridor – The second highest functional class of the regional pedestrian network.
On-street regional pedestrian corridors are any major or minor arterial on the regional urban
arterial network that is not a pedestrian parkway. Regional trails that are not pedestrian
parkways are regional pedestrian corridors. These routes are also expected to see a high level of
pedestrian activity, though not as high as the parkways.

Pedestrian district – A comprehensive plan designation or set of land use regulations designed
to provide safe and convenient pedestrian circulation, with a mix of uses, density, and design that
support high levels of pedestrian activity and transit use. The pedestrian district can be a
concentrated area of pedestrian activity or a corridor. Pedestrian districts can be designated
within the following 2040 Design Types: Central City, Regional and Town Centers, Corridors and
Main Streets. Though focused on providing a safe and convenient walking environment,
pedestrian districts also integrate efficient use of several modes within one area, e.g., auto, transit,
and bike.

Pedestrian facility – A facility provided for the benefit of pedestrian travel, including walkways,
protected street crossings, crosswalks, plazas, signs, signals, pedestrian scale street lighting and
benches.

Pedestrian parkway – A new functional class for pedestrian routes in the Regional
Transportation Plan and the highest functional class. They are high quality and high priority
routes for pedestrian activity. Pedestrian parkways are major urban streets that provide frequent
and almost frequent transit service (existing and planned) or regional trails. Adequate width and
separation between pedestrians and bicyclists should be provided on shared use path parkways.

Pedestrian-scale – An urban development pattern where walking is a safe, convenient and

interesting travel mode. The following are examples of pedestrian scale facilities: continuous,
smooth and wide walking surfaces, easily visible from streets and buildings and safe for walking;
minimal points where high speed automobile traffic and pedestrians mix; frequent crossings; and
storefronts, trees, bollards, on-street parking, awnings, outdoor seating, signs, doorways and
lighting designed to serve those on foot; all well-integrated into the transit system and having
uses that cater to pedestrians.

People of color focus area – Census tracts with higher than regional average concentrations and
double the density of one or more of the following: people of color and/or English language
learners.

Per capita – Used to describe the rate of something per person.

Performance-based planning and programming – Refers to the application of performance

management within the planning and programming processes of MPOs and transportation
agencies to achieve desired performance outcomes for the multimodal transportation system.
Attempts to ensure that transportation investment decisions are made – both in long-term
planning and short-term programming of projects – based on their ability to meet established
goals.

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Performance management – A strategic approach that uses data and information to support
decisions that help to achieve identified performance outcomes.

Performance measurement – A process of assessing progress toward achieving goals using data.

Performance measure – A metric used to assess and monitor progress toward meeting an
objective using quantitative or qualitative data and provide feedback in the plan’s decision-
making process.

Some measures can be used to predict the future as part of an evaluation process using forecasted
data, while other measures can be used to monitor changes based on actual empirical or observed
data. In both cases, they can be applied at a system-level, corridor-level and/or project level, and
provide the planning process with a basis for evaluating alternatives and making decisions on
future transportation investments. As used in the RTP, performance measures are used to
evaluate transportation system performance and potential impacts of the plan’s investments
within the planning period. They are also used to monitor performance of the plan in between
updates to evaluate the need for refinements to policies, investment strategies or other elements
of the plan..

Person trip – A trip made by a person from one location to another, whether as a driver, bicyclist,
passenger or pedestrian.

Per vehicle miles traveled (VMT) – Used to describe rate of something per the number of motor
vehicle miles traveled, such as the crash rate per motorized vehicle miles. Except where otherwise
noted, crash rates are per 100-million motorized vehicle miles travelled in this document.

Physically separated bicycle lanes – These types of facilities provide a physical buffer between
a person riding a bicycle and auto traffic and can be referred to as cycle tracks, trails, paths and
buffered bicycle lanes. Buffers can be provided by parked cars, landscaped strips, raised
pavement, bollards and planters.

Planning area boundary – A boundary used by Metro for planning purposes – also called the
metropolitan planning area boundary. Included within the boundary are all areas within the
Metro jurisdictional boundary, the 2010 Census urbanized area, designated urban reserves and
the urban growth boundary.

Planning factors – A set of broad objectives defined in Federal legislation to be considered in

both the metropolitan and statewide planning process. The factors are:
• Support the economic vitality of the metropolitan area, especially by enabling global
competitiveness, productivity, and efficiency.
• Increase the safety of the transportation system for motorized and non-motorized users.
• Increase the security of the transportation system for motorized and non-motorized users.
• Increase the accessibility and mobility of people and for freight.

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• Protect and enhance the environment, promote energy conservation, improve the quality of
life, and promote consistency between transportation improvements and State and local
planned growth and economic development patterns.
• Enhance the integration and connectivity of the transportation system, across and between
modes, people and freight.
• Promote efficient system management and operation.
• Emphasize the preservation of the existing transportation system.
• Improve the resiliency and reliabilityof the transportation system and reduce or mitigate
stormwaterimpacts of surface transportation.
• Enhance travel and tourism.

Policy – A policy is a statement of intent and describes a direction and a course of action adopted
and pursued by a government to achieve desired outcome(s).

Posted Speed – The speeds indicated on signs along the roadway. When speeds differ from
statutory speeds there must be a posted sign indicating the different speed.

Practicable – This term means available and capable of being done after taking into consideration
cost, existing technology and logistics, in light of overall project purposes.

Preparedness – This term refers to actions taken to plan, organize, equip, train, and exercise to
build, apply, and sustain the capabilities necessary to prevent, protect against, ameliorate the
effects of, respond to, and recover from climate change related damages to life, health, property,
livelihoods, ecosystems, and national security.

Pricing - Motorists pay directly for driving on a particular roadway or for driving or parking in a
particular area. Pricing includes applying different rates by location, level of congestion, or time of
day, amongst other methods. Rates may vary based on vehicle size or type, incomes, or other
variables. Pricing within the Portland metropolitan context could include the following methods
and pricing strategies. Methods and strategies can be combined in different ways, such as variable
cordon pricing or dynamic roadway pricing. Different types of pricing can be implemented in
coordination with each other to provide greater systemwide benefits. Pricing can be implemented
at the state, regional, or local level. Types of Pricing: Cordon / Low Emissions Zone; Parking; Road
Usage Charge / VMT Fee / Mileage Based User Fee. Roadway Rate Types: Flat; Variable; Dynamic

Principal arterial – Limited-access roads that serve longer-distance motor vehicle and freightƒ
trips and provide interstate, intrastate and cross-regional travel. See definition of Throughway.

Project development – A phase in the transportation planning process during which a proposed
project undergoes a more detailed analysis of the project’s social, economic and environmental
impacts and various project alternatives to determine the precise location, alignment, and
preliminary design of improvements based on site-specific engineering and environmental
studies. After a project has successfully passed through this phase, it may move forward to right–
of–way acquisition and construction phases. Project development activities include:

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Environmental Assessment (EA)/Environmental Impact Statement (EIS) work, Design Options
Analysis (DOA), management plans, and transit Alternatives Analysis (AA).

Protected bike lanes – Separated bike lane, cycle track, a bike lane that is physically separated
from auto traffic, typically they are created using planters, curbs, parked cars, or posts and are
essential for creating a complete network of bike-friendly routes. For bicyclists, safety increases
significantly when there is physical separation from motorists through infrastructure. Fully
protected bikeways can reduce bicycle injury risk up to 90 percent.2 Another report found that
on-street bike lanes that use barriers to physically separate bicyclists from motor vehicles are 89
percent safer than streets with parked cars and without bicycling infrastructure. When physical
separation is not possible, infrastructure such as striped bike lanes, bicycle boulevards, and bike
boxes help reduce the risk of conflict with motor vehicles.3

Public health – The health of the population as a whole, especially as monitored, regulated, and
promoted by the state.

Public Transportation Safety Action Plan (PTASP) – A plan developed by certain operators of
public transportation systems that are recipients or subrecipients of Federal Transit
Administration (FTA) grant funds that include the processes and procedures necessary for
implementing Safety Management Systems (SMS). Each safety plan must include, at a minimum:

• An approval by the agency’s Accountable Executive and Board of Directors (or an

equivalent authority); The designation of a Chief Safety Officer;

• The documented processes of the agency’s SMS, including the agency’s Safety Management
Policy and processes for Safety Risk Management, Safety Assurance, and Safety Promotion;

• An employee reporting program;

• Performance targets based on the safety performance measures established in FTA’s

National Public Transportation Safety Plan (NSP);

• Criteria to address all applicable requirements and standards set forth in FTA’s Public
Transportation Safety Program and the NSP; and

• A process and timeline for conducting an annual review and update of the safety plan.

A rail transit agency’s safety plan also must include or incorporate by reference an emergency
preparedness and response plan or procedures.

Racial equity – When race can no longer be used to predict life outcomes and outcomes for all
groups are improved. The removal of barriers with a specific focus on eliminating disparities

2
“Route Infrastructure and the Risk of Injuries to Bicyclists: a Case-Crossover Study,” Teschke, et al. American
Journal of Public Health, Vol. 102, No. 12, December 2012.
3
A Right to the Road, p.48, GHSA, 2017.

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faced by and improving equitable outcomes for communities of color – the foundation of Metro’s
strategy with the intent of also effectively identifying solutions and removing barriers for other
disadvantaged groups.

Rail branch lines – Non–Class I rail lines, including short line or branch lines.

Ramp meter or metering – A traffic signal used to regulate the flow of vehicles entering the
freeway. Ramp meters smooth the merging process resulting in increased freeway speeds and
reduced crashes. Ramp meters can be automatically adjusted based on traffic conditions.

Refinement plan – Amendment to a transportation system plan which determines at a systems

level the function, mode or general location of a transportation facility, service or improvement,
deferred during system planning because detailed information needed to make the determination
could not be reasonably obtained at that time.

Regional bike-transit facility – The hub where the spokes of the regional bikeway network
connect to the regional transit network. Stations and transit centers identified as regional bike-
transit facilities have high-capacity bike parking and are suitable locations for bike-sharing and
other activities that support bicycling. Criteria for identifying locations are found in the TriMet
Bicycle Parking Guidelines.

Regional bikeway – Designated routes that provide access to and within the central city, regional
centers and town centers. These bikeways are typically located on arterial streets but may also be
located on collectors or other low-volume streets. These bikeways should be designed using a
flexible “toolbox” of bikeway designs, including bike lanes, cycle tracks (physically separated bike
lanes) shoulder bikeways, shared roadway/wide outside lanes and bicycle priority treatments
(e.g. bicycle boulevards).

Regional centers (2040 design type) – Compact, specifically–defined areas where higher
density growth and a mix of intensive residential and commercial land uses exists or is planned.
Regional centers are to be supported by an efficient, transit–oriented, multi–modal transportation
system. Examples include traditional centers, such as downtown Gresham, and new centers such
as Gateway and Clackamas Town Center.

Regional Conservation Strategy (RCS) for the Greater Portland Vancouver Metropolitan
Area, Intertwine and Metro - Identifies high quality land and riparian areas in the region. The
strategy was developed by The Intertwine Alliance, Metro and a broad coalition of conservation
organizations to pull together 20 years of conservation planning and create an integrated
blueprint for regional conservation. The plan will help government, nonprofit and private
organizations work together to care for and restore thousands of acres of natural area land and
create habitat for wildlife.

Regional destinations – Include the following types of places: employment sites with 300 or
more employees (includes regional sports and attraction sites such as Oregon Zoo, Oregon
Museum of Science and Industry, Providence Park, Moda Center); high ridership bus stop
locations; regional shopping centers; major hospitals and medical centers; colleges, universities

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and public high schools; regional parks; major government centers; social services; airports; and
libraries.
Regional Flexible Funds Allocation (RFFA) – Regional flexible funds come from the Surface
Transportation Block Grant Program and Transportation Alternatives set aside and the
Congestion Mitigation/Air Quality Program federal funding programs. The regional flexible fund
allocation process identifies which projects in the Regional Transportation Plan will receive these
funds to carry out RTP investment policy priorities. Regional flexible funds are allocated every
three years and are included in the Metropolitan Transportation Improvement Program. Unlike
funding that flows only to highways or only to transit by a rigid formula, this is money that can be
invested in a range of transportation projects or programs as long as federal funding eligibility
requirements are met

Regional freight network – Applies the regional freight concept on the ground to identify the
transportation networks and freight facilities that serve the region and state’s freight mobility
needs.

Regional intelligent transportation system (ITS) architecture – A regional framework for

ensuring institutional agreement and technical integration for the implementation of ITS projects
or groups of projects.

Regional mobility policy – The Regional Mobility Policy is a policy in Metro’s Regional
Transportation Plan (RTP) as well as ODOT’s Oregon Highway Plan (OHP). It applies to system
planning and plan amendment processes only within the Portland metropolitan area. The regional
mobility policy is one of many policies that helps the region choose where to focus resources for
the transportation system to support implementation of city and county comprehensive plans.
The goal of the updated policy is to better align the policy and measures with shared regional
values, goals, and desired outcomes identified in RTP and 2040 Growth Concept, as well as with
local and state goals. Specifically, the updated policy is intended to support mobility outcomes
related to equity, efficiency, access and options, safety, and reliability. Six policies and three
measures are included in the policy that have direct relationships to these desired mobility
outcomes.

Regional trails – Regional Trails are defined by Metro as linear facilities for non-motorized users
that are at least 75% off-street and are regionally significant. Bicycle/pedestrian sidewalks on
bridges are also included in this definition. The term “non-motorized” is used instead of “multi-
use” or “multi-modal” because some Regional Trails are pedestrian-only. Trails must meet two
levels of criteria to be considered “regionally significant.” The criteria are adopted by the Metro
Council in the Regional Trails and Greenways Plan. Regional trails are physically separated from
motor vehicle traffic by open space or a barrier. Bicyclists, pedestrians, joggers, skaters and other
non-motorized travelers use these facilities.

While all trails serve a transportation function, not all regional trails identified on Metro’s
Regional Trails and Greenways Map are included in the RTP. The RTP includes regional trails that
support both utilitarian and recreational functions. These trails are generally located near or in
residential areas or near mixed-use centers and provide access to daily needs. Trails in the RTP

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are defined as transportation facilities and are part of the regional transportation system.
Regional trails in the RTP are eligible to receive federal transportation funds. Trails that use
federal transportation funds need to be ADA accessible according to the AASHTO trail design
guidelines. There are some pedestrian only trails or trails near sensitive habitat on the RTP
network that would most likely not be paved. Regional bicycle connections are planned parallel to
pedestrian only regional trails. Colloquially, terms like “bike path” and “multi-use path” are often
used interchangeably with “regional trail,” except when referring to pedestrian-only regional
trails.

Regional Trails and Greenways Map – A map developed and maintained by Metro. The map was
first developed as part of the Metropolitan Greenspaces Master Plan. The map includes the existing
and proposed trails and greenways in the regional system. Many of the regional trails are included
in the Regional Transportation Plan.

Regional transit network – The regional transit system includes light rail, commuter rail, bus
rapid transit, enhanced transit, frequent bus, regional bus, and streetcar modes as well as major
transit stops.

Regional Transportation Functional Plan (RTFP) – A regional functional plan regulating

transportation in the Metro region, as mandated by Metro’s Regional Framework Plan. The plan
directs local plan implementation of the Regional Transportation Plan.

Regional Transportation Plan (RTP) – A long-range metropolitan transportation plan that is

developed and adopted for the greater Portland metropolitan planning area (MPA) covering a
planning horizon of at least 20 years. Usually RTPs are updated every five years through the
federally-mandated metropolitan transportation planning process. The plan identifies and
analyzes transportation needs of the metropolitan region and creates a framework for
implementing policies and project priorities. Required by state and federal law, it includes
programs to better maintain, operate and expand transportation options to address existing and
future transportation needs. The RTP also serves as the regional transportation system plan
under the Oregon Transportation Planning Rule.

Regional transportation system – The regional transportation system is identified on the

regional transportation system maps in the Regional Transportation Plan. The system is limited to
facilities of regional significance generally including regional arterials and throughways, high
capacity transit and regional transit systems, regional multi–use trails with a transportation
function, bicycle and pedestrian facilities that are located on or connect directly to other elements
of the regional transportation system, air and marine terminals, as well as regional pipeline and
rail systems.

Regional Travel Options (RTO) Program – Regional program led by Metro and guided by a 10-
year strategy aimed at reducing the demand for roadway travel, particularly single occupant
vehicle travel and improving people's travel choices. Metro coordinates partner activities and
provides grant funding for the following:

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• support for employment-based programs to reduce SOV auto trips to worksites and ECO rule
compliance
• a regional Safe Routes to School effort that supports local education programs in schools to
teach kids how to walk and bicycle to school safely
• community-based programs that focus on the travel needs of specific neighborhoods or people
• funding for bicycle parking, wayfinding signage and other tools that help people to use travel
options
• funding for pilot projects to test new ways to reach the public through technology or innovative
engagement methods.

See also transportation demand management.

Regionally significant industrial area (RSIA) – 2040 land use designation; RSIAs are shown on
Metro’s 2040 map. Industrial activities and freight movement are prioritized in these areas.

Regionally significant project – A transportation project (other than projects that may be
grouped in the TIP and/or STIP or exempt projects as defined in EPA's transportation conformity
regulations (40 CFR part 93, subpart A)) that is on a facility that serves regional transportation
needs (such as access to and from the area outside the region; major activity centers in the region;
major planned developments such as new retail malls, sports complexes, or employment centers;
or transportation terminals) and would normally be included in the modeling of the metropolitan
area's transportation network. Chapter 3 of the RTP defines the regional transportation system.

Reliability – This term refers to consistency or dependability in travel times, as measured from
day to day and/or across different times of day. Variability in travel times means travelers must
plan extra time for a trip.

Reload facility – An intermediary facility where freight is reloaded from one land–based mode to
another.

Resilience or resiliency – This term means the ability to anticipate, prepare for and adapt to
changing conditions and withstand, respond to and recover rapidly from disruptions.

Revision – A change to a long-range statewide or metropolitan transportation plan, TIP, or STIP

that occurs between scheduled periodic updates. A major revision is an “amendment” while a
minor revision is an “administrative modification.”

Ride-hailing services – Also known as transportation network companies, or TNCs like Uber and
Lyft, which use apps to connect passengers with drivers who provide rides in their personal
vehicles.

Rideshare – A transportation demand management strategy where two or more people share a
trip in a vehicle to a common destination or along a common corridor. Private passenger vehicles
are used for carpools, and some vanpools receive public/private support to help commuters.

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Carpooling and vanpooling provide travel choices for areas underserved by transit or at times
when transit service is not available.

Right-of-way (ROW) – Land that is publicly-owned, or in which the public has a legal interest,
usually in a strip, within which the entire road facility (including travel lanes, medians, sidewalks,
shoulders, planting areas, bikeways and utility easements) resides. The right-of-way is usually
acquired for or devoted to multi-modal transportation purposes including bicycle, pedestrian,
public transportation and vehicular travel.

Road diet – Road diets are one way to reconfigure limited roadway space in a way that allows for
the inclusion of wider sidewalks and separated bicycle facilities such as buffered bicycle lanes,
which can provide space for all users to operate safely an in their own “zones.” Road diets can
have multiple safety and operational benefits for autos, as well as pedestrians and cyclists. On
existing roadways, separated in-roadway facilities may be implemented by narrowing existing
travel lanes, removing travel lanes, removing on-street parking or widening the roadway
shoulder. If constraints, such as narrow existing right-of-way, prohibit providing optimally
desired bicycle facility widths, then interim facility improvements can be used.

Road Usage Charge / VMT Fee / Mileage Based User Fee - Motorists are charged for each mile
driven. A road usage charge is often discussed as an alternative to federal, state, and local gas
taxes which have become less relevant to the user-pays principle as more drivers switch to fuel
efficient or electric vehicles. Road usage charges are most often implemented as flat or variable
rate fees.

Road users – A motorist, passenger, public transportation operator or user, truck driver, bicyclist,
motorcyclist, or pedestrian, including a person with disabilities. (23 USC section 148)

Roadway connectors – Roads that connect other freight facilities, industrial areas, and 2040
centers to a main roadway route.

Roadway pricing - Motorists are charged to drive on a particular roadway. Roadway pricing can
be implemented as a flat, variable, or dynamic fee. Roadway prices that vary by time of day can
follow a set fee schedule (variable), or the fee rate can be continually adjusted based on traffic
conditions (dynamic).

Rural reserves (2040 Design Type) – Lands that are high value working farms and forests or
have important natural features like rivers, wetlands, buttes and floodplains. These areas are
protected from urbanization for 50 years after their designation.

Safe Routes to School – A comprehensive engineering/education program focused on youth

school travel that aims to create safe, convenient, and fun opportunities for children to walk and
roll (bike, scooter, etc.) to and from schools. City or school district based programs incorporate
evaluation, education, encouragement, engineering, enforcement, and equity with the goal of
increasing walking and rolling to school. Safe Routes to School is a national program that works to
nationally, regionally and locally to create safe, healthy, and livable urban, suburban and rural
communities. The program works with parents, school districts, local governments, government,

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police and community partners to make it easy and safe for kids to walk and bike to school.
Results are achieved through investments in small capital projects, educations and outreach such
as walking school buses.

Safe System Approach – A data-driven, strategic approach to roadway safety that aims to
eliminate fatal and severe injury crashes. The approach is based on a foundational understanding
of the underlying causes of traffic fatalities and severe injuries (using data) and is based on the
principle that errors are inevitable but serious crashes should not be. Transportation safety
policies that use a Safe System approach include Vision Zero, Towards Zero Deaths, Road to Zero
and Sustainable Safety.

Safe System Approach Speed Setting – Speed limits are set according to the likely crash types,
the resulting impact forces, and the human body’s ability to withstand these forces. It allows for
human errors (that is, accepting humans will make mistakes) and acknowledges that humans are
physically vulnerable (that is, physical tolerance to impact is limited). Therefore, in this approach,
speed limits are set to minimize death and severe injury as a consequence of a crash.

Safe, Accountable, Flexible, Efficient, Transportation Equity Act: A Legacy for Users
(SAFETEA-LU) – Signed into federal law in 2005, SAFETEA-LU authorized the federal surface
transportation programs for highways, highway safety, and transit through 2009. SAFETEA-LU
refined and reauthorized TEA-21. SAFETEA-LU was subsequently replaced by MAP-21 and the
FAST Act. See also BIL

Safety – Protection from death or bodily injury from a motor-vehicle crash through design,
regulation, management, technology and operation of the transportation system.

Safety benefit projects – Projects with design features to increase safety for one or more
roadway user. These projects may not necessarily address an identified safety issue at an
identified high injury or high risk location, but they do include design treatments known to
increase safety and reduce serious crashes. Examples include adding sidewalks, bikeways,
medians, center turn lanes and intersection or crossing treatments.

Safety data – Includes, but is not limited to, crash, roadway, and traffic data on all public roads.
For railway- highway grade crossings, safety data also includes the characteristics of highway and
train traffic, licensing, and vehicle data.

Safety project – Has the primary purpose of reducing fatal and severe injury crashes or reducing
crashes by addressing a documented safety problem at a documented high injury or high risk
location with one or more proven safety countermeasures.

Scenario planning – An analytical approach and planning process that provides a comprehensive
framework for evaluating how various combinations of strategies, policies, plans and/or
programs may affect the future of a community, region or state. The approach involves identifying
various packages or strategies or scenarios against a baseline projection.

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Security (public and personal) – Protection from intentional criminal or antisocial acts while
engaged in trip making through design, regulation, management, technology and operation of the
transportation system.

Serious Crash – Refers to the total number of Fatal and Severe Injury (Injury A) crashes
combined.

Severity – A measurement of the degree of seriousness concerning both vehicle impact (damage)
and bodily injuries sustained by victims in a traffic crash.

Shared mobility – Describes services that allow people to share a vehicle, such as ride-hailing
trips, shared e-scooters, car and bike share and microtransit, as well as traditional shared modes
like transit, car- or vanpools and taxis. Some of these services are privately operated by shared
mobility companies.

Shared trips – Trips taken by multiple passengers traveling in a single vehicle, including carpools,
transit trips and some ride-hailing or car share trips.

Short trip – Generally defined as a one-way trip less than three miles.

Should – When used in the context of a policy or action, should means an expected course of
action or policy that is to be followed unless inappropriate for a particular circumstance. Also see
must.

Sidewalk – A walkway separated from the roadway with a curb, constructed of a durable, hard
and smooth surface, designed for preferential or exclusive use by pedestrians.

Single–occupanct vehicle (SOV) – A private motorized passenger vehicle carrrying one occupant
(the driver only). Also referred to as a drive alone vehicle. Also, an automated vehicle with one
passenger.

Smart cities – The way in which public agencies are using technology to collect better data,
provide better service, do business more efficiently and make better decisions.

Social equity – The idea that all members of a societal organization or community should have
access to the benefits associated with civil society – the pursuit of an equitable society requires
the recognition that there are a number of attributes that give members of a society more or less
privilege and that in order to provide equitable situations the impacts of these privileges (or lack
thereof) must be addressed. For transportation, equity refers to fair treatment or equal access to
transportation services and options. In the context of safety, transportation equity relates to
improving the travel choices, the safety of travel and not unfairly impacting one group or mode of
transportation. More specifically it means improved safety for all transportation options and
lessening the risks or hazards associated with different choices of transportation.

Stakeholders – Individuals and organizations with an interest in or who are affected by a

transportation plan, program or project, including federal, state, regional and local officials and
jurisdictions, institutions, community groups, transit operators, freight companies, shippers, non–

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governmental organizations, advocacy groups, residents of the geographic area and people who
have traditionally been underrepresented.

State Highways – In Oregon, is a network of roads that are owned and maintained by the
Highway Division of the Oregon Department of Transportation (ODOT), including Oregon’s
portion of the Interstate Highway System.

State Transportation Improvement Program (STIP) – The four-year funding and scheduling
document for major street, highway and transit projects in Oregon. The STIP is produced by
ODOT, consistent with the Oregon Transportation Plan (the statewide transportation plan) and
other statewide plans as well as metropolitan transportation plans and MTIPsThe STIP covers the
entire state and is overseen by the Oregon Transportation Commission (OTC). It must include all
the metropolitan region’s TIPs without change as well as a list of specific projects proposed by
ODOT in the non-metropolitan areas. Updated every three years, the STIP determines when and if
transportation projects will be funded by the state with state or federal funds.

State Transportation Plan – The official statewide intermodal transportation plan that is
developed through the statewide transportation planning process. See also Oregon
Transportation Plan.

Station communities (2040 Design Type) – Areas generally within a 1/4- to 1/2-mile radius of
a light rail station or other high capacity transit stops that are planned as multi-modal, mixed-use
communities with substantial pedestrian and transit-supportive design characteristics and
improvements.

Strategic plan – Defines the desired direction and outcomes to guide decisions for allocating
resources to pursue the strategy.

Strategic project list – Additional policy-driven transportation needs and priority projects that
could be achieved with additional resources.

Strategy – Involves a set of actions that follows the planning process of setting goals, objectives
and performance measures, and mobilizing resources to execute the actions. A strategy describes
how the ends (goals) will be achieved by the means (resources).

Street – A gravel or concrete– or asphalt–surfaced facility. The term collectively refers to arterial,
collector and local streets that are located in 2040 mixed–use corridors, industrial areas,
employment areas and neighborhoods. While the focus for streets has been on motor vehicle
traffic, they are designed as multi–modal facilities that accommodate bicycles, pedestrians and
transit, with an emphasis on vehicle mobility and special pedestrian infrastructure on transit
streets.

Surface Transportation Block Grant (STBG) – A federal source of funding for projects and
activities that is the most flexible in its use. Projects and activities which states and localities can
use STBG include: projects that preserve and improve the conditions and performance on any

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federal-aid highway, bridge and tunnel projects on any public road, pedestrian and bicycle
infrastructure and transit capital projects, including intercity bus terminals.

Sustainability – A social goal about the ability of people to co-exist on Earth over a long time,
using, developing and protecting the natural environment and resources in a manner that enables
people to meet current needs and while enabling future generations to meet future needs, from
the joint perspective of environmental, economic and community objectives. Sustainable – A
method of using a resource such that the resource is not depleted or permanently damaged.

System efficiency – Strategies that optimize the use of the existing transportation system,
including traffic management, employer-based commute programs, individualized marketing and
carsharing.

Target – A specific level of performance that is desired to be achieved within a specified time
period.

Threshold - Thresholds determine the upper and lower limits of performance for a specific time
period.

Throughways – Controlled access (on-ramps and off-ramps) interstates and major highways.
These routes generally correspond to Expressways designated in the Oregon Highway Plan.

Toward Zero Deaths – The United States’ highway safety vision. The National Strategy on
Highway Safety provides a platform of consistency for state agencies, private industry, national
organizations and others to develop safety plans that prioritize traffic safety culture and promote
the national Toward Zero Deaths vision. As a strategic policy it is similar to Vision Zero.

Traffic – Movement of motorized vehicles, non–motorized vehicles and pedestrians on

transportation facilities. Often traffic levels are expressed as the number of units moving over or
through a particular location during a specific time period.

Traffic calming – A transportation system management technique that aims to prevent

inappropriate through-traffic and reduce motor vehicle travel speeds on a particular roadway.
Traditionally, traffic calming strategies provide speed bumps, curb extensions, planted median
strips or rounds and narrowed travel lanes.

Traffic incident management – Planned and coordinated processes followed by state and local
agencies to detect, respond to, investigate and remove lane-blocking or rail-blocking vehicles and
debrisquickly and safely in order to quickly recover road, transit and other operations for
travelers.

Traffic management – Actions that improve traffic conditions for safety and reliability during
incidents such as special events, crashes, construction, inclement weather or a natural disaster
that cause delays, unreliable travel times and/or the need for alternate routes and/or additional
transit and other mobility services.

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Traffic signal progression – A process by which a number of traffic signals are synchronized to
create the efficient progression of vehicles.

Transit accessibility – Accessibility refers to two separate but related aspects of transit. One is to
ensure that transit is physically accessible to everyone, regardless of age or ability. All transit
users must access transit via biking, walking or rolling, even if stops are mere feet away. Complete
sidewalks and bike paths improve safety and enhance the experience of using transit and the
accessible stations are essential to making transit work for everyone. The first/last mile
connection is also an important part of accessibility, as it often represents the best opportunity for
people living in less developed areas, rural towns or outlying areas to access our transit system.
The second is to ensure that schools, particularly high schools and colleges, community places,
such as grocery stores and medical services, and jobs are accessible by transit. As the region
grows, it’s crucial to continue to expand community and regional transit service in order to
improve access to these daily needs and encourage employers to locate on existing transit routes.

Transit Asset Management Plan (TAMP) – A plan that includes an inventory of capital assets, a
condition assessment of inventoried assets, a decision support tool, and a prioritization of
investments.

Transit Asset Management System – A strategic and systematic process of operating,

maintaining, and improving public transportation capital assets effectively, throughout the life
cycles of those assets.

Transit oriented development (TOD) – Is a mix of residential, retail, and office uses and a
supporting network of roads, bicycle, and pedestrian ways focused on a major transit stop
designed to support a high level of transit use.

(Metro) Transit Oriented Development (TOD) Program - Metro began a regional Transit
Oriented Development program in 1998 as part of a strategy to leverage the region’s significant
investment in high capacity transit. As part of Metro’s TOD Program, the agency strategically
invests to stimulate private development of higher-density, affordable and mixed-use projects
near transit to help more people live, work and shop in neighborhoods served by high-quality
transit. In addition, the program invests in "urban living infrastructure" like grocery stores and
other amenities, provides technical assistance to communities and developers, and acquires and
owns properties in transit-served areas and solicits proposals from qualified developers to create
transit-oriented communities in these places.

Transit-supportive elements - Transit-supportive elements include programs, policies, capital

investments and incentives such as Travel Demand Management and physical improvements such
as sidewalks, crossings, and complementary land uses.

Transportation Alternatives Program – The Transportation Alternatives Program (TAP) was

authorized under Section 1122 of Moving Ahead for Progress in the 21st Century Act (MAP-21)
and is codified at 23 U.S.C. sections 213(b), and 101(a)(29). Section 1122 provides for the
reservation of funds apportioned to a State under section 104(b) of title 23 to carry out the TAP.
The national total reserved for the TAP is equal to 2% of the total amount authorized from the

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Highway Account of the Highway Trust Fund for Federal-aid highways each fiscal year. The TAP
provides funding for programs and projects defined as transportation alternatives, including on-
and off-road pedestrian and bicycle facilities, infrastructure projects for improving non-driver
access to public transportation and enhanced mobility, community improvement activities, and
environmental mitigation; recreational trail program projects; safe routes to school projects; and
projects for planning, designing, or constructing boulevards and other roadways largely in the
right-of-way of former Interstate System routes or other divided highways.

Transportation demand – The quantity of transportation services desired by users of the

transportation system.

Transportation demand management (TDM) – A policy approach such as variable pricing to

manage demand of limited transportation capacity or transportation services. Also, a strategy
with a set of actions and programs designed to reduce demand for roadway travel, particularly
single occupant vehicle trips, through various means (e.g. education, outreach, marketing,
incentives, technology). The strategies aim to provide information, encouragement and incentives
to help people choose non-SOV modesin order to make more efficient use of transportation
infrastructure and services. Strategies include offering other modes of travel such as walking,
bicycling, ride–sharing and vanpool programs, car sharing, alternative work hours, education such
as individualized marketing, policies, regulations and other combinations of incentives and
disincentives that are intended to reduce drive alone vehicle trips on the transportation network.
Metro’s TDM program is called the Regional Travel Options (RTO) program. See also Regional
Travel Options Program.

Transportation disadvantaged/persons potentially underserved by the transportation

system – Individuals who have difficulty in obtaining important transportation services because
of their age, income, physical or mental disability. This includes every person in their youth and is
likely to affect people in their oldest years.

Transportation equity – The removal of barriers to eliminate transportation-related disparities

faced by and improve equitable outcomes for marginalized communities, especially Black,
Indigenous, people of color.

Transportation improvement program (TIP) – A prioritized listing/program of multimodal

transportation projects covering a period of 4 years that is developed and formally adopted by an
MPO as part of the metropolitan transportation planning process. The TIP must be consistent with
the metropolitan transportation plan, and is required for projects to be eligible for funding under
title 23 U.S.C. and title 49 U.S.C. chapter 53. In the Portland metropolitan region, the TIP is
referred to as the Metropolitan Transportation Improvement Program (MTIP). In practice, the
MTIP is a short-term, four year program of transportation projects that will be funded with
federal funds expected to flow to the region and locally and state-funded regionally significant
projects.

Transportation management associations (TMA) – Non-profit coalitions of local businesses

and/or public agencies, and/or residences (such as condo Home Owner Associations and

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Community Development Corporations) all dedicated to reducing traffic congestion and pollution
while improving travel options for employees, residents and visitors.

Transportation management area (TMA) – An urbanized area with a population over 200,000,
as defined by the U.S. Census Bureau and designated by the Secretary of Transportation, or any
additional area where TMA designation is requested by the Governor and the MPO and designated
by the Secretary of Transportation. These areas must comply with special transportation planning
requirements regarding congestion management process, project selection, processes for
develoment of tan RTP and MTIP and certification identified in 23 CFR 450.300-340.

Transportation needs – Estimates of the movement of people and goods based on current
population and employment and future growth consistent with acknowledged comprehensive
plans. Needs are typically defined based on an assessment of existing transportation system gaps
and deficiencies and projections of future travel demand, from a continuation of current trends as
modified by policy objectives expressed in Statewide Planning Goal 12, the Transportation
Planning Rule, federal planning factors and the RTP (Chapter 2 and Chapter 3).

Deficiencies are defined as the difference between the current transportation system and adopted
standards based on performance measures and targets identified in Chapter 2. Deficiencies are
capacity or design constraints that limit but do not prohibit the ability to travel by a given mode.
Gaps are defined as missing links in the transportation system for any mode. Gaps either prohibit
travel by a particular mode or make it functionally unsafe. Together, gaps and deficiencies are
defined as needs.
• Local transportation needs means needs for movement of people and goods within
communities and portions of counties and the need to provide access to local destinations.
• Regional transportation needs means needs for movement of people and goods between and
through communities and accessibility to regional destinations within a metropolitan area,
county or associated group of counties.
• State transportation needs means needs for movement of people and goods between and
through regions of the state and between the state and other states.

See also gap and deficiency.

Transportation performance management (TPM) – Strategic approach that uses system

information to make investment and policy decisions to achieve national performance goals.

Transportation planning – A continuing, comprehensive, and cooperative (3-C) process to

encourage and promote the development of a multimodal transportation system to ensure safe
and efficient movement of people and goods while balancing environmental and community
needs.

Transportation planning rule (TPR) – Oregon’s statewide planning goals established state
policies in 19 different areas. The TPR implements the Land Conservation and Development
Commission’s Planning Goal 12 (Transportation) which requires ODOT, MPOs, Counties and

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Cities, per OAR 660-012-0015 (2) and (3), to prepare a Transportation System Plan (TSP) to
identify transportation facilities and services to meet state, regional and local needs, as well as the
needs of the transportation disadvantaged and the needs for movement of goods and services to
support planned industrial and commercial development, per OAR 660-012-0030(1).

Transportation system – Various transportation modes or facilities (aviation, bicycle and

pedestrian, throughway, street, pipeline, transit, rail, water transport, shared-use mobility)
serving as a single unit or system.

Transportation system management (TSM) – A strategy composed of actions for increasing

travel flow on existing facilities through improvements such as ramp metering, traffic signal
performance, incident response, traveler information and integrated travel choices such as
mobility on demand.

Transportation system plan (TSP) – The transportation element of the comprehensive plan for
one or more transportation facilities that is planned, developed, operated and maintained in a
coordinated manner to supply continuity of movement between modes, and between geographic
and jurisdictional areas. A TSP describes a transportation system and outlines projects, programs,
and policies to meet transportation needs now and in the future based on community (and
regional) aspirations. A TSP typically serves as the transportation component of the local
comprehensive plan. The TSP supports the development patterns and land uses contained in
adopted community and regional plans. The TSP includes a comprehensive analysis and
identification of transportation needs associated with adopted land use plans. The TSP complies
with Oregon's Transportation Planning Rule, as described in statewide Planning Goal 12. The RTP
is a regional TSP.

Local TSPs must be consistent with the applicable Regional Transportation Plan. Jurisdictions
within a metropolitan area must adopt TSPs that reflect regional goals, objectives, and investment
strategies specific to the area and demonstrate how local transportation system planning helps
meet regional performance targets. A jurisdiction within a Metropolitan Planning Organization
area must make findings that the proposed Regional Transportation Plan amendment or update is
consistent with the local TSP and comprehensive plan or adopt amendments that make the
Regional Transportation Plan and the TSP consistent with one another. (OAR 660-012-0015) TSP
updates must occur within one year of the adoption of a new or updated Regional Transportation
Plan (OAR 660-012-0055).

Travel options/choices – The ability range of travel mode choices available, including motor
vehicle, walking, bicycling, riding transit and carpooling. Telecommuting is sometimes considered
a travel option because it replaces a commute trip with a trip not taken.

Travel time – The measure of time that it takes to reach another place in the region from a given
point for a given mode of transportation. Stable travel times are a sign of an efficient
transportation system that reliably moves people and goods through the region.

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Travel time reliability – This term refers to consistency or dependability in travel times, as
measured from day to day and/or across different times of day. Variability in travel times means
travelers must plan extra time for a trip.

Trip – A one–way movement of a person or vehicle between two points. A person who leaves
home on one vehicle, transfers to a second vehicle to arrive at a destination, leaves the destination
on a third vehicle and has to transfer to yet another vehicle to complete the journey home has
made four unlinked passenger trips.

TripCheck – An Oregon Department of Transportation website that displays real-time data and
crowdsourced data regarding road conditions, weather conditions, camera images, crash alerts,
delays due to congestion and construction, and other advisories. Additionally, TripCheck provides
travelers with information about travel services such as food, lodging, attractions, public
transportation options, scenic byways, weather forecasts, etc. This information is also available
through the 511 travel information phone line.

Truck terminal – A facility that serves as a primary gateway for commodities entering or leaving
the metropolitan area by road.

Underserved communities – Populations that have historically experienced a lack of

consideration in the planning and decision making process. It describes historically marginalized
communities in addition to those that are defined in the federal definition of Environmental
Justice. These populations are seniors, persons with disabilities, youth, communities of color, low-
income communities, and any other population of people whose needs may not have been full met
in the planning process.

Unified Planning Work Program (UPWP) – This refers to annual statement of work identifying
the planning priorities and activities to be carried out within a metropolitan planning area. At a
minimum, a UPWP includes a description of the planning work and resulting products, who will
perform the work, time frames for completing the work, the cost of the work, and the source(s) of
funds.

United States Department of Transportation (USDOT) – The federal cabinet-level agency with
responsibility for highways, mass transit, aviation and ports; it is headed by the Secretary of
Transportation. The DOT includes the Federal Highway Administration and the Federal Transit
Administration, among others.

Universal access – Universal access is the goal of enabling all citizens to reach every destination
served by their public street and pathway system. Universal access is not limited to access by
persons using automobiles. Travel by bicycle, walking, or wheelchair to every destination is
accommodated in order to achieve transportation equity, maximize independence, and improve
community livability. Wherever possible, facilities are designed to allow safe travel by youth,
seniors, and people with disabilities who may have diminished perceptual or ambulatory abilities.
By using design to maximize the percentage of the population who can travel independently, it
becomes much more affordable for society to provide paratransit services to the remainder with
special needs.

G-44 Glossary of Terms

Public Review Draft 2023 Regional Transportation Plan | July 10, 2023
Update – For federal purposes, this means making current a long-range statewide transportation
plan, metropolitan transportation plan, TIP, or STIP through a comprehensive review. Updates
require public review and comment, a 20-year horizon for metropolitan transportation plans and
long-range statewide transportation plans, a 4-year program period for TIPs and STIPs,
demonstration of fiscal constraint (except for long-range statewide transportation plans), and a
conformity determination (for metropolitan transportation plans and TIPs in nonattainment and
maintenance areas). For state purposes, this means TSP amendments that change the planning
horizon and apply broadly to a city or county and typically entails changes that need to be
considered in the context of the entire TSP, or a substantial geographic area.

Urban growth boundary – The politically defined boundary around an urban area beyond which
no urban improvements may occur. In Oregon, UGBs are defined so as to accommodate projected
population and employment growth within a 20–year planning horizon. A formal process has
been established for periodically reviewing and updating the UGB so that it meets forecasted
population and employment growth.

Urbanized area (UZA) – A geographic area with a population of 50,000 or more, as designated by
the Bureau of the Census.

Urban reserve – Lands suitable for accommodating urban development over the 50 years after
their designation.

Variable rate fee - With this type of pricing, a variable fee schedule is set so that the fee is higher
during peak travel hours and lower during off-peak or shoulder hours. This encourages motorists
to use the facility or drive less during less congested periods and allows traffic to flow more freely
during peak times. Peak fee rates may be high enough to usually ensure that traffic flow will not
break down, thus offering motorists a reliable and less congested trip in exchange for the higher
peak fee. The current price is often displayed on electronic signs prior to the beginning of the
priced facility and is often published as a schedule on agency websites and other routing
resources.

Value pricing – A demand management strategy that involves the application of market pricing
(through variable tolls, variable priced lanes, area-wide charges or cordon charges) to the use of
roadways at different times of day. Also called congestion pricing or peak period pricing. Also see
pricing

Vanpool – A form of transit in which a group of passengers share the use and cost of a van in
traveling to and from pre-arranged destinations together.

Vehicle – Any device in, upon or by which any person or property is or may be transported or
drawn upon a public highway and includes vehicles that are propelled or powered by any means.

Vehicle miles traveled (VMT) – A common measure of roadway use by multiplying miles
traveled per vehicle by the total number of vehicles for a specified time period. For purposes of
this definition, "vehicles" include automobiles, light trucks and other passenger vehicles used for

Glossary of Terms G-45

Public Review Draft 2023 Regional Transportation Plan | July 10,2023
the movement of people. The definition does not include buses, heavy trucks and other vehicles
that involve commercial movement of goods.

VMT Fee – See Road Usage Charge

Vision – In this document, an aspirational statement of what the region (and plan) is trying to
achieve over the long-term through policy and investment decisions.

Vision Zero – A system and approach to public policy developed by the Swedish government
which stresses safe interaction between road, vehicle and users. Highlighted elements include a
moral imperative to preserve life, and that the system conditions and vehicle be adapted to match
the capabilities of the people that use them. Vision Zero employs the Safe System approach.

Visualization techniques – Methods used by States and MPOs in the development of

transportation plans and programs with the public, elected and appointed officials, and other
stakeholders in a clear and easily accessible format such as GIS- or web-based surveys,
inventories, maps, pictures, and/or displays identifying features such as roadway rights of way,
transit, intermodal, and non-motorized transportation facilities, historic and cultural resources,
natural resources, and environmentally sensitive areas, to promote improved understanding of
existing or proposed transportation plans and programs.

Volume–to–capacity (v/c) ratio – A traditional measure of congestion, calculated by by dividing

the number of motor vehicles passing through a section of roadway during a specific increment of
time by the motor vehicle capacity of the section. For example, a V/C ratio of 1.00 indicates the
roadway facility is operating at its capacity.

Also referred to as level-of-service, this ratio has been used in transportation system planning,
project development and design as well as in operational analyses and traffic analysis conducted
during the development review process. As a system plan, the RTP uses the volume-to-capacity
ratio targets to diagnose the extent of motor vehicle congestion on throughways and arterials
during different times of the day and to determine adequacy in meeting the region’s needs. The
v/c ratio targets are also used to determine consistency of the RTP with the Oregon Highway Plan
for state-owned facilities. See also level-of-service and regional mobility policy.

Vulnerable users – In this document, refers to groups of people that are more vulnerable to
being killed or severely injured in traffic crashes. Vulnerable users are people that are more
vulnerable to being killed or seriously injured in crashes. Vulnerable users are pedestrians,
bicyclists, motorcycle operators, children, older adults, road construction workers, people with
disabilities, people of color and people with low income.

Walkable neighborhood – A place where people live within walking distance to most places they
want to visit, whether it is school, work, a grocery store, a park, church, etc.

Walk score – An online tool that produces a number between 0 and 100 that measures the
walkability of any address. Similar tools for transit and bicycling - Transit Score and Bike Score.

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Public Review Draft 2023 Regional Transportation Plan | July 10, 2023
Walkway – A hard-surfaced transportation facility designed and suitable for use by pedestrians,
including persons using wheelchairs. Walkways include sidewalks, hard-surfaced portions of
accessways, regional trails, paths and paved shoulders.

Wayfinding – Signs, maps, street markings, and other graphic, tactile, haptic or audible methods
used to convey location and directions to travelers. Wayfinding helps people traveling to orient
themselves and reach destinations easily.

Glossary of Terms G-47

Public Review Draft 2023 Regional Transportation Plan | July 10,2023
If you picnic at Blue Lake or take your kids to the Oregon Zoo, enjoy symphonies
at the Schnitz or auto shows at the convention center, put out your trash or
drive your car – we’ve already crossed paths.

So, hello. We’re Metro – nice to meet you.

In a metropolitan area as big as Portland, we can do a lot of things better

together. Join us to help the region prepare for a happy, healthy future.

Metro Council President

Lynn Peterson

Metro Councilors
Ashton Simpson, District 1
Christine Lewis, District 2
Gerritt Rosenthal, District 3
Juan Carlos González, District 4
Mary Nolan, District 5
Duncan Hwang, District 6

Auditor
Brian Evans

Stay in touch with news, stories and things to do.

[Link]/news

If you have a disability and need accommodations, call 503-220-2781, or call

Metro’s TDD line at 503-797-1804. If you require a sign language interpreter, call
at least 48 hours in advance.

600 NE Grand Ave.

Portland, OR 97232-2736
503-797-1700
503-797-1804 TDD
503-797-1795 fax

For more information, visit

[Link]/rtp

Printed on recycled-content paper

July 10, 2023