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Short-Term Impacts During Construction
Key Findings:
- Construction of the full project, currently estimated between late 2023 through 2030, will require re-routing of traffic, pedestrians and bicycles around active construction areas.
For more information, see Section 3.13.2.5 of the Supplemental EA (PDF, 7.1 MB) and read the Transportation Access Technical Memorandum (PDF, 493 KB).
The Supplemental EA describes how construction activities will affect:
- People walking, biking, rolling and riding.
- Vehicle traffic patterns.
- Vehicle traffic on I-5 and local streets.
- Access to businesses and residential areas in the project area.
- Noise levels in the vicinity of construction activities.
- Air quality as a result of exhaust from construction equipment and dust from construction debris.
- Possible relocation of utilities above and below ground that would result in temporary service interruptions.
The project will maintain access to major facilities in the project area.
Temporary construction impacts will be reduced with:
- Providing signed, safe detour routes for people walking, biking, rolling, riding transit and driving.
- Maintaining access to the Coliseum, Moda Center and the Oregon Convention Center during major events.
- Using sound control devices and limited idling time for construction vehicles and equipment.
- Implementing dust control measures such as coverings and watering.
Transportation Safety
Key Findings:
Project reduces the frequency of crashes on I-5 through:
- Less stop-and-go traffic and emergency braking.
- New auxiliary lanes that provide drivers more time and space to merge.
- New shoulders that provide more room for disabled vehicles to move out of the flow of traffic.
For more information, see Section 3.13.2.3 of the Supplemental EA (PDF, 7.1 MB) and read the Transportation Safety Supplemental Technical Report (PDF, 3.96 MB).
The project creates safer local streets for all travel modes than would exist without the project through:
- Improved striping and signaling.
- Protected bike lanes and pedestrian improvements.
- Relocating the I-5 southbound off-ramp and reducing the complexity of the Broadway/Vancouver intersection.
The I-5 southbound off-ramp would be part of a six-leg signalized intersection with increased traffic volume and movement of all modes of transportation through this intersection. It would be one of the most complex intersections in the project area.
Existing congestion on I-5. New auxiliary lanes would provide drivers more time and space to merge.
Conceptual project area sketch featuring a safer I-5 corridor and local street system with greater separation of people walking, biking, rolling, riding transit and driving within the project area.
Traffic Operations
Key Findings:
Motor vehicle traffic operations on I-5 are expected to improve with the project compared to without the project.
- New auxiliary lanes that provide drivers more time and space to merge.
- New shoulders that provide more room for disabled vehicles to move out of the flow of traffic and emergency responders to move through traffic.
- Together, new auxiliary lanes and shoulders mean less stop-and-go traffic and emergency braking.
For more information, see Section 3.13.2.4 of the Supplemental EA (PDF, 7.1 MB) and read the Traffic Analysis Supplemental Technical Report (PDF, 8.25 MB).
Merging on I-5 today compared to merging using auxiliary lanes in the future.
In the future (2045), motor vehicles are expected to have longer delays at some intersections; however, the project would provide a better balance of pedestrian and bicycle safety and the delays of all modes.
With the exception of one intersection in the morning rush hour (N Broadway Street and N Victoria Avenue), all local street intersections would operate at acceptable levels of service.
The I-5 southbound off-ramp would be relocated to extend south under the highway cover and connect to the south side of NE Weidler Street. This would create new circulation patterns that would likely require signal timing adjustments, particularly with pre-event traffic operations at the Moda Center.
Active Transportation
Key Findings:
Movement for people walking, biking and rolling would improve overall with the project compared to without the project due to:
- Improved bicycle and pedestrian connections with the highway cover.
- Improved safety through signal timing to separate bicycles and pedestrians from turning vehicles.
- Improved safety through physical separation from vehicles.
For more information, see Section 3.13.2.2 of the Supplemental EA (PDF, 7.1 MB) and read the Active Transportation Supplemental Technical Report (PDF, 5.5 MB).
Williams Bicycle Facility:
A new raised and protected bicycle facility on N Williams Avenue (from N Ramsay Way to the on-ramp at the intersection of N Williams Avenue and N Broadway Street) would improve safety.
Reconnected Hancock:
The highway cover would reconnect N/NE Hancock Street over I-5, providing a direct east-west connection to the Lower Albina neighborhood.
Pedestrian Access:
With the project, movement for people walking, biking and rolling would improve at certain locations within the project area and could decline at certain locations within the project area compared to conditions without the project. Changes could include:
- Potential crosswalk closures, which are proposed with the relocation of the I-5 southbound off-ramp for pedestrian safety and transportation operations. These closures would introduce some out-of-direction travel for some pedestrians.
- Bicycle delay due to new signals and signal timing for greater separation of motorized vehicles and people biking.
- The potential for pedestrian/auto conflict at the proposed new I-5 southbound ramp location, which could increase due to the additional traffic at this location.
Bike lanes on Williams, Broadway, and Weidler.
Transit
Key Findings:
- Most transit operations (streetcar, bus and light rail) with the project would be similar to operations without the project.
- Depending on the time of day and direction of travel, travel times could increase or decrease by about 1 minute.
- Portland Streetcar would have shorter travel times westbound in the AM and PM peak traffic hours (estimated at 6 – 36 seconds), whereas eastbound travel times would be seconds longer (estimated at 20 – 46 seconds).
- Slight bus delays are expected due to added signals for pedestrians and bicyclists.
- There is potential for transit ridership to increase in the project area with future development of the highway cover.
For more information, see Section 3.13.2.1 of the Supplemental EA (PDF, 7.1 MB) and read the Transit Supplemental Technical Report (PDF, 1.77 MB).
MAX light rail entering the project area.
Transit lines in the project area.
Air Quality
Key Findings:
- Criteria pollutants meet the National Ambient Air Quality Standards, and all mobile emissions including air toxins are expected to decrease over the next 25 years due to fuel efficiency standards with fleet turnover and regional efforts to control emissions.
- This expected reduction is a continuation of a 40-year trend.
- Emissions would be slightly lower with the project than without the project due to higher speeds, less stop-and-go traffic and less idling on I-5.
For more information, see Section 3.2 of the Supplemental EA (PDF, 7.1 MB) and read the Air Quality Supplemental Technical Report (PDF, 1.76 MB).
Projected National Mobile Source Air Toxics
Emission Trends 2010 - 2050
Mobile Source Air Toxics Emissions with and without the Project
Future (2045) air pollutant emissions are estimated to be substantially lower than 2017 conditions, with the exception of PM10. Air quality would slightly improve with the project as compared to without the project due to higher travel speeds and less idling.
Noise
Key Findings:
- Existing noise levels in the project area currently exceed national standards, and noise levels are expected to worsen with or without the project due to increased traffic volumes over time.
- Overall, small increases in noise levels would occur at some locations with the project due to changes in traffic patterns, but the increases would be too small to be detectable by the human ear.
- However, there also would be reductions in existing noise levels with the project in some areas, especially where the highway cover is constructed, because it would shield those areas from some traffic noise on I-5.
- The project proposes a sound wall to reduce noise at Lillis Albina Park and Harriet Tubman Middle School, which would reduce noise to levels lower than they are today.
For more information, see Section 3.9 of the Supplemental EA (PDF, 7.1 MB) and read the Noise Study Supplemental Technical Report (PDF, 7.97 MB).
Conceptual illustration, wall design subject to change.
Proposed sound wall location within the project area.
Climate Change
Key Findings:
- Annual greenhouse gas emissions in 25 years with the project are expected to be 19% lower than 2017 emissions. This reduction is mostly due to fuel efficiency standards with fleet turnover and regional efforts to control emissions, and reflects the continuation of a 40-year trend.
- Greenhouse gas tailpipe emissions in 2045 under the Revised Build Alternative and No-Build Alternative would be similar.
For more information, see Section 3.3 of the Supplemental EA (PDF, 7.1 MB) and read the Climate Change Supplemental Technical Report (PDF, 1.3 MB).
Regional Context
The State of Oregon, Multnomah County, the City of Portland and Metro have developed strategies to reduce greenhouse emissions from motor vehicles, including improving the overall efficiency of the transportation system, promoting multimodal and mixed-use communities and future congestion pricing. This project supports those regional transportation goals.
Environmental Justice
Key Findings:
The project has several benefits for underserved communities in the project area including:
- Improved safety and mobility on I-5 and local streets for everyone moving through the area.
- Restored connectivity of the lower Albina neighborhood with the highway cover.
- Improved access to transit.
- Opportunities for local, small and minority-owned businesses.
For more information, see Section 3.12 of the Supplemental EA (PDF, 7.1 MB).
What is Environmental Justice?
Environmental Justice is 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.
Environmental Justice is achieved when all people have:
- The same degree of protection from environmental and health hazards.
- Equal access to the decision-making process.
- A healthy environment in which to live, learn and work.
- Equal access to public resources.
Photos of North Portland showing the relocation of houses and the construction of I-5.
Environmental Justice and NEPA:
Executive Order 12898 requires federal agencies to identify and address disproportionately high and adverse human health or environmental effects of its programs, policies, and activities on minority communities and low-income populations.
Under NEPA, federal agencies should address significant adverse environmental effects to these communities with mitigation measures.
The Project's Commitment
- Honor the historic communities as we work to improve regional transportation.
- Be transparent and continue dialogue as the project progresses.
- Engage with people harmed from past infrastructure projects and those affected by, or interested in, the I-5 Rose Quarter Improvement Project.
ODOT and the City of Portland acknowledge that past activities allowed by or conducted by the agencies in the project area have disconnected and displaced communities.
Parks and Historic Resources - Section 4(f)
Key Findings:
- The project would have a Section 4(f) de minimis impact for one Section 4(f) historic site: the TraveLodge at the Coliseum (now known as the Crowne Plaza Portland Downtown Convention Center) because the project would require a permanent acquisition of land, along with temporary and permanent easements, from the rear parking lot of the site.
- A Section 4(f) de minimis impact is a Section 4(f) “use,” but is one that will not adversely affect the activities, features, or attributes that qualify a property for protection under Section 4(f) of the US Department of Transportation Act of 1966.
For more information, see Section 3.6 of the Supplemental EA (PDF, 7.1 MB).
What is Section 4(f)?
Section 4(f) of the U.S. Department of Transportation Act of 1966 protects historic properties, park and recreational facilities, and wildlife and waterfowl refuges.
Vera Katz Eastbank Esplanade and Willamette River Greenway Trail.
Section 4(f) resources within the project area.
Historic Resources - Section 106
Key Findings:
- Eliot Historic District and 15 properties in the project vicinity are eligible for the National Register of Historic Places (NRHP).
- Short-term construction impacts or longer-term impacts could affect 12 historic properties due to noise and construction-related vibration, dust and/or changes in the setting.
- Two properties would be affected by temporary and permanent easements or property acquisitions.
- None of the short-term or long-term impacts would diminish the characteristics that make the properties eligible for the NRHP.
For more information, see Section 3.5 of the Supplemental EA (PDF, 7.1 MB) and read the Historic Resources Supplemental Technical Report (PDF, 2.4 MB), Appendix A (PDF, 1.2 MB), Appendix B (PDF, 7.37 MB), Appendix C (PDF, 3.44 MB).
What does it mean if a site is eligible for the NRHP?
Because these sites were determined eligible for the NRHP, ODOT is required to avoid, minimize, or mitigate any potential adverse effects to the property. No adverse effects were identified in the Supplemental EA and, therefore, no mitigation would be required.
What is Section 106?
Section 106 of the National Historic Preservation Act requires state projects receiving federal funding to take into account the effects of their action on historic properties.
Properties eligible for historic status within the project area.
Project Purpose:
- The purpose of the Project is to improve the safety and operations on I-5 between Interstate 405 (I-405) and Interstate 84 (I-84), at the interchange of I-5 and N Broadway and NE Weidler Street (Broadway/Weidler interchange), and on adjacent surface streets in the vicinity of the Broadway/Weidler interchange.
In Support of This Purpose, The Project Would Also:
- Support improved local connectivity and multimodal access in the project area and between neighborhoods east and west of I-5.
- Complement the land use, urban design and transportation system envisioned for the planning districts of Lower Albina and Lloyd as articulated in the City of Portland’s adopted plans.
Project Need:
I-5 between I-84 and I-405 is the top traffic bottleneck in Oregon, and the 28th worst freight bottleneck in the nation. The project is needed to address the following:
- I-5 Safety
- I-5 Operations & Reliability
- Broadway/Weidler Interchange Operations
- Travel Reliability
Project History
The I-5 Rose Quarter Improvement Project has been part of regional transportation conversations since the 1980s. Learn more:
Key Project Features Include:
Highway Cover
A new cover over I-5, similar to a very wide bridge, that reconnects local streets and creates new community spaces on top for future development and economic opportunities.
Hancock Crossing
A new east-west roadway crossing over I-5 that reconnects Hancock Street across the highway, adding another crossing north of Broadway and Weidler.
Multimodal Local Street Improvements
A variety of street improvements for people walking, biking and rolling.
Green Loop Connection
A link on Broadway and Weidler to the city’s Green Loop, a 6-mile bike and pedestrian path that allows people to travel safely through the heart of the city.
Auxiliary Lanes and Shoulders
Ramp-to-ramp connections, paired with wider shoulders, that improve safety and reduce congestion at the state’s top bottleneck.
I-5 Southbound Off-ramp Relocation
Relocation of the I-5 southbound off-ramp from Vancouver/Broadway to the south, connecting with N Wheeler Avenue.
Learn More:
National Environmental Policy Act
The project is following the requirements of the National Environmental Policy Act (NEPA), which is a federal law requiring agencies seeking federal funding or approval to assess the potential impacts of their project on the natural, human and built environments. NEPA environmental documents compare the effects of building a project with the effects of not building a project.
In 2019, ODOT and the Federal Highway Administration (FHWA) prepared an EA for the project, followed by a public comment period in accordance with NEPA. In 2020, ODOT and FHWA prepared a Revised EA that responded to public and agency comments on the 2019 EA, and FHWA signed a Finding of No Significant Impact (FONSI) for the project. In 2021, ODOT made design changes at the direction of the Oregon Transportation Commission based on an Independent Cover Assessment and community feedback. The FHWA determined that the design changes warranted additional review in accordance with NEPA, and rescinded the 2020 FONSI. As a result, ODOT incorporated the design changes into a Revised Build Alternative, and with FHWA, prepared the Supplemental EA to evaluate the benefits and impacts of the Revised Build Alternative compared to a No-Build Alternative.
The Design Changes
- Provide one larger and continuous highway cover that could support buildings up to three stories tall, and possibly up to six stories tall. The prior design featured two smaller covers that could not support buildings.
- Maintain the N Flint Avenue connection and reconnect N Hancock Street to NE Hancock Street over I-5. The prior design removed the N Flint Avenue connection over I-5.
- Relocate the I-5 southbound off-ramp at NE Broadway farther south to NE Wheeler Avenue near the Moda Center. The prior design maintained the I-5 southbound off-ramp in its existing location at the intersection of NE Broadway.
- Connect the City of Portland’s Green Loop for pedestrians and cyclists on Broadway and Weidler Streets. The prior design included a separated bicycle and pedestrian bridge referred to as the Clackamas bicycle and pedestrian bridge.
Supplemental EA Documents
- Executive Summary (PDF, 147 KB)
- Supplemental Environmental Assessment (PDF, 7.1 MB)
- Appendix A. Supplemental Environmental Technical Reports (PDF, 70 KB) + Show Reports
- Appendix B. Reasonably Foreseeable Future Actions (PDF, 467 KB)
- Appendix C. Section 106 Programmatic Agreement between FHWA, ODOT, and SHPO (PDF, 13.9 MB)
- Appendix D. Summary of Avoidance, Minimization, and Mitigation Measures (PDF, 346 KB)
- Appendix E. Figure Descriptions (PDF, 219 KB)
Key Environmental Study Findings
Short-Term Impacts During Construction
Learn how project construction will affect those accessing the project area, and what measures will be taken to reduce temporary construction impacts.
Transportation
Transportation Safety:
Review how the proposed project design is expected to improve safety for all travel modes on I-5 and local streets.
Traffic Operations:
Learn how motor vehicle traffic operations will be impacted both on I-5 and local streets.
Active Transportation:
Find out how movement for people walking, biking and rolling would generally improve with the project compared to without the project.
Transit:
Learn how the project impacts transit operations and ridership.
Air Quality
Read about the expected reductions in air toxins, emissions and pollutants over the next 25 years.
Noise
Gain an understanding of the project’s noise analysis and what design proposals are in place for sound walls in the project area.
Climate Change
Review the key climate change findings regarding greenhouse gas emissions.
Environmental Justice
Learn about Environmental Justice and the project’s commitment to Environmental Justice values.
Parks - Section 4(f)
The project area includes 4 Section 4(f) park resources and 15 Section 4(f) historic sites. Understand how the project will impact those resources and sites.
Historic Resources - Section 106
The project vicinity includes a historic district and historic properties. Learn how the project will impact those historic resources in the short term and the long term.
Review the information above and submit comments by midnight January 4, 2023.
Other Environmental Study Topics
The topics listed above received the most public interest to date. Other topic areas that can be found in the Supplemental EA include:
- Archaeological Resources (Section 3.4 of the Supplemental EA, Supplemental Technical Report.)
- Hazardous Materials (Section 3.7 of the Supplemental EA)
- Land Use (Section 3.8 of the Supplemental EA, Supplemental Technical Report.)
- Socioeconomics (Section 3.11 of the Supplemental EA, Supplemental Technical Report.)
- Water Resources (Section 3.15 of the Supplemental EA)
- Right of Way (Section 3.10 of the Supplemental EA, Supplemental Technical Report.)
- Utilities (Section 3.14 of the Supplemental EA)
You can read more about these topics in the project library at i5rosequarter.org/resources/library.
Elevating Community Voices Through:
Project Values
By centering restorative justice as one of the project’s primary values, ODOT is doing business differently by facilitating community involvement through informed project design and workforce opportunities for the Black community.
Advisory Committees
Two advisory committees oversee and provide direction for the project. All committee meetings are open to the public and welcome public comment.
- The Historic Albina Advisory Board (HAAB) elevates the voices in the Black community and ensures that the project outcomes reflect community interests and values.
- The Community Oversight Advisory Committee (COAC) works to ensure the construction contractor meets its workforce and project contracting goals with Disadvantaged Business Enterprises.
Online Design Surveys
We’re hosting a series of online design surveys to collect community feedback on designs that honor the historic Albina community and could be added to highly visible areas of the project infrastructure.
Collaborative Contracting
We’re reshaping the way we do business by taking a more collaborative approach to contracting work for the project and encouraging the participation of Disadvantaged Business Enterprises.
Other Ongoing Community Engagement Efforts Both Online and In-Person:
- Engagement with youth and students of color.
- Participation and sponsorships at community events.
- Incentivized engagement with community-based organizations.
- Open houses, public workshops and forums.
- Direct outreach to the faith community, local businesses, community leaders and elected officials.
Illustration of potential bridge design elements seen in the Summer Design Survey.
Youth Design Forum in collaboration with Word is Bond PDX and Camp ELSO.
Staff in attendance at the 2022 Juneteenth Oregon Celebration.
How to Comment
Information is available in alternative formats upon request.
- You can help us respond to questions and concerns by being as specific as possible with your comments. This means including page numbers or citing specific parts of the EA document in your comment. Additional explanations, facts and references are also helpful, when appropriate. Specific interests, thoughts and concerns are more effective than broad statements and more likely to be used to improve the final documents and analyses.
- As a reminder, commenting on the Supplemental EA is not a vote on the project but an opportunity to provide decision-makers your input about the environmental analysis of the preferred design alternative.
There are several ways to submit a comment, and all comments received through these channels are viewed equally:
Online Open House and Project Website
Leave a comment in the form below or at i5RoseQuarter.org between November 15, 2022 and January 4, 2023.
Email
Send an email with "Supplemental EA public comment period" in the subject line to:
Phone
Leave a recorded voicemail at this number:
(503) 470-3127
By Mail
Send a written comment to this address:
Project Manager
c/o I-5 Rose Quarter Improvement Project
888 SW 5th Ave. Suite 600
Portland, OR 97204
Virtual Public Hearing
Provide your verbal comments at the Virtual Public Hearing on Wednesday, December 14, 2022, from 5 to 7:30 p.m.
In an effort to promote equity and in line with the project values, the I-5 Rose Quarter Improvement Project will ask people who identify as Black and/or people with ties to the historic Albina neighborhood to speak first, after invited testimony.
Registration is now closed.
If you don't want to speak at the virtual public hearing, you can watch it live on YouTube.
Printed Copy
View a printed copy of the document at the Multnomah County Library Albina branch:
216 NE Knott St.
Portland, OR 97212
What's Next?
The FHWA will consider all public comments received on the Supplemental EA before making a decision on the project. The decision document and records of public comments are expected to be available on the project website in early 2023. Pending the FHWA’s decision, construction on the project could begin in late 2023. We'll continue to engage the community as the project progresses.
Comment Form
Thank you again for participating in this online open house.
To learn more about the project, visit i5RoseQuarter.org.