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State of the System - Mobility

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Mobility

How people move around our system is based on a series of individual choices. They consider what they can afford, can access, what is convenient, safe, or many other factors. Any gaps or disruptions can prevent people from accessing jobs or critical services. These disruptions can affect individuals, families, or even whole communities. Likewise, the flow of goods and freight is heavily impacted by the mobility of the system. An inefficient system leads to delays, uncertainty, and associated cost increases to businesses and consumers alike.

ODOT's role is to ensure efficient movement of vehicles on interstates and highways, connecting bikeways and walkways along those routes, and supporting state and local transit service through funding programs. 

People in Oregon want multimodal options and less roadway congestion.

A stacked bar chart that shows that Oregonians find the following mobility categories either somewhat important or very important to fund. Categories include Amtrak Cascade, Buses Between Cities, Sidewalks/Bike Lanes, Transit Within Cities, Expanding Roads/Bridges, Senior and Disabled Transit, and Reducing Traffic Congestion.

There is broad public support to use transportation dollars for multimodal options and to reduce traffic congestion. Public polling found:

  • 9 out of 10 respondents put reducing traffic congestion as a priority for transportation spending.
  • 52% said they would take transit if service was added or improved in their area.
  • 42% said they would walk or bike if connections were added or improved in their area.

Source: Oregon Transportation Needs and Issues Survey (2023)

Roadway Congestion

Congestion means a slowdown or stop of traffic, usually due to a crash, the rush hour commute, or bad weather. Congestion can cause people to be late to everyday destinations and costs businesses more to ship or receive their goods. We manage congestion by:

  • better spreading demand across modes, by developing biking, walking and transit options;
  • working with employers to offer flexible work scehdules and telecommuting so fewer people travel peak hour commutes;
  • implementing transportation demand management strategies that reduce drive-alone trips such as building park and ride lots; and
  • using technology to help manage the flow of traffic more smoothly, like ramp meters.

We know we can't build our way out of congestion, so our focus is on relieving specific bottlenecks and areas with high crash rates.

Oregon is seeing reductions in Vehicle Miles Traveled (VMT) per capita

  • Per Capita VMT has declined 9% since 1990.
  • Population has increased 51% since 1990, while total VMT has increased 38%.
  • ODOT oversees 18% of Oregon's lane miles but carries 59% of all VMT.

A stacked line chart that show Oregon Statewide Vehicle Mile Traveled and Vehicle Miles Traveled per capita indexed to the year 1990. 
Source: Transportation Planning Analysis Unit

Statewide VMT is influenced by population growth, because more people generally means more travel. Per capita VMT (statewide VMT divided by population) reveals average per person travel, which has decreased over time.

ODOT lane miles have grown less than 5% in the last two decades

We primarily focus on investments that make Oregon's transportation system safer and more reliable. Only a small amount of road projects have added lanes, such as auxiliary lanes between freeway on and off ramps, through lanes and truck climbing lanes.

  • On interstates/freeways, only 50 lane miles have been added since 2000, a 0.3% increase.

Roads are congested during commute times, especially in the Portland Metro area

  • Partial 2024 data (Jan 1 - Sept. 30) indicates congestion statewide has grown approximately 4% since 2023 and returned to pre-pandemic range.
  • Each of Oregon’s urban areas has some level of congestion during peak hours but roads in the Portland Metro area are the worst. 
    • 91% of the 444 congested lane miles statewide are in the Portland Metro area.
  • Portland Metro has locations ranked 28th and 30th on the nation's top truck bottlenecks. (Interstate bridge and I-5 at I-84)*

*Source: Top 100 Truck Bottlenecks - 2024, American Transportation Research Institute

A pie chart that shows the Portland Metro area has 91% of congested lane miles in the state of Oregon. Other metropolitan areas and rural areas both have a 4% share of congested lane miles. 

Source:ODOT Highway Performance Monitoring System Data

Statewide Congestion Map: 2023 Weekday PM Peak

The Travel Time Index (TTI) is the ratio of the travel time during the peak period to the time required to make the same trip at free-flow speeds. A value of 1.5, for example, indicates a 30-minute free-flow trip requires 45 minutes during the peak period. This map shows congestion during peak periods on the Oregon freeway system. The higher the TTI value, the greater the congestion levels. Most congestion in Oregon is in the metropolitan areas, which can be seen by zooming into the map. 2023 congestion is mostly in the Portland area, but also in Eugene-Springfield and Albany. 

Congestion - Key Performance Measure


Travelers need to plan extra time to get where they need to go in Portland

Travel time is unreliable on Portland's interstates and highways. For example, an evening trip on Interstate 5 could take 30 minutes longer on a day with particularly bad traffic when compared to an average day. As a result, people need to plan for more time to get to where they need to go. 


A table that shows corridor locations in the Portland area and the potential added travel time commuters need to reach their destination in the evening due to congestion. Corridors include sections of I-5, with potential added travel time of 30 minutes, I-205, with potential added travel time of 26 minutes, I-405, with potential added travel time of 5 minutes and OR 217, with potential added travel time of 7 minutes. 
 

Dealing with traffic congestion is not just inconvenient; it also costs people money and wastes their time

  • The daily cost of delay on highways and interstates in the Portland Metro region was $1.2 million in 2019. 
    • The cost of congestion is calculated based on fuel costs associated with idling, time lost sitting in traffic and other factors. 
  • Businesses that ship their goods are also affected by congestion. Delay and unreliable travel times impact their movement of goods, and businesses pass some of those costs on to customers. 

We are working to ease congestion in Portland

Investments have been sucessful in smoothing speeds and making travel times more consistent. For example: 

  • We extended small sections of merging lanes on I-205. This gave drivers more time to get on and off the interstate and resulted in an 11-minute improvment in trip reliability.

However, congestion is still significant in many areas across our region. ODOT developed the Urban Mobility Strategy to help address this, improve safety and modernize the region's aging transportation system.

  • Major Urban Mobility Strategy projects are described in the table to the right.
We also partner with local jurisdictions and transit agencies to bolster transportation options within the region and along ODOT-owned roads.
Project
OR 217 Auxiliary Lanes Project- Our studies show that auxiliary lanes reduce crashes by 20-30%. This project includes adding new auxiliary lanes, on-ramp to off-ramp connections that give drivers more space and time to merge safely. The project also includes improvements to adjacent bicycle and pedestrian facilities.

Estimated completion season/year: Fall 2025
I-205 Abernethy Bridge Project- A critical link connecting West Linn and Oregon City, this bridge will be the first earthquake-ready interstate bridge across the Willamette River in the Portland area. Includes bridge widening, improving nearby on- and off-ramps, and improving local bike and pedestrian routes. This is ODOT's largest construction project in 45 years.

Estimated completion season/year: Winter 2025-2026
I-5 Rose Quarter Improvement Project- Improves safety and congestion where three major interstates converge and reconnects the Albina neighborhood through the construction of a highway cover over a portion of I-5.

Estimated start date season/year: 2026 (We are exploring opportunities to advance early work.)
I-5 Boone Bridge Replacement Project- Replaces the existing bridge with one that can withstand a major earthquake. The new bridge will also enhance traffic flow, makes travel times more reliable, and improve safety.

Estimated start date season/year: Schedule to be determined based on funding availability.
 
Visit our Urban Mobility Office website to learn more
Urban Mobility Office link button - click to visit 



Multimodal

We are working hard to build a robust multimodal transportation system that ensures travelers have options like walkways, bikeways, rail and public transit to get them where they need to go.

People rely on transportation options

  • Nearly 20% of Oregon households include people who use transit at least once a week.
  • 31% of Oregonians are not licensed drivers.
  • 9% of the driving age population does not have a drivers license.
  • Oregon’s population is aging; 19% of the state is age 65+.
  • Average age in rural areas is higher than urban, with fewer travel options.

More people are walking, biking and taking transit

  • Walk trips have increased nearly 60% in recent years. 
  • Many people in Oregon have commutes ideal for walking, biking or public transit: around 25% of commute trips are 3 miles or less, and just over 35% are 3-10 miles long.

A stacked bar chart that shows travel modes that are either occasionally or frequently used. Categories include Alone in automobile (the most common mode), Carpool in automobile, Walking, Bicycle, Public bus, Taxi or uber, Light rail or train, and Motorcycle or scooter (the least common mode).
Source: Oregon Transportation Needs and Issues Survey (2023)


Oregon’s walking and biking network is incomplete

  • ODOT is responsible for creating safe, walkable and bikeable connections.
    • Only 45% of our state highways in urban areas have needed bikeways and walkways. The gap is over 2000 miles.

Sidewalk accessibility is improving 

We are responsible for making sure people with all abilities can use walkways along our state highways. This includes our ongoing work to bring more than 27,000 sidewalk curb ramps into compliance with Americans with Disabilities Act. We're upgrading existing ramps, adding new ones, and installing or upgrading pedestrian signals throughout the state to improve accessibility for people who walk, bike or roll. This work includes limited sidewalk improvements so additional improvements will be needed for complete accessible networks for sidewalks and transit stops.

A stacked bar chart that shows 8,748 curb ramps have been remediated with 18,586 remaining.

For more information, visit:ADA Curb Ramp Program Link Button - click to visit

Safe Routes to School program help kids access education safely

Our Safe Routes to School programs work with schools and communities to identify safety needs, provide education and safety gear, and build safe walking and biking connections.

  • $15 million is allocated annually to connect sidewalks and bike lanes, add or improve crossings, and ensure the roadways around schools are safe for kids to walk and bike. 
    • ODOT receives 3-5 times more funding requests than we have available. More money is needed to meet demands and safely connect all schools statewide.
  • We dedicate an additional $1.3 million annually for education, outreach, and planning efforts.

Explore ODOT funded Safe Routes to School projects below.

Oregon’s Payroll tax expands transit services statewide 

Oregonians take over 100 million public transit trips a year, connecting to essential medical services, family, social networks, jobs, school, groceries, day care, and more with a high-capacity, lower carbon choice. Transit services are mostly funded by federal dollars passing through ODOT. In 2017, Oregon transit agencies received much-needed new funding through a payroll tax. The tax has tripled transit funding since 2019, expanded transit hours, made service more frequent, and brought services to more people. 


An image showing statics of the Statewide Transportation Improvement Fund Outcomes through September 30, 2023: 45.8 million miles of passenger services; 40.1 million passenger trips; 130,525 students with access to free or reduced fares; and more than 350 vehicles purchased, including 35 battery electrics and 45 electric hybrids. 

Oregon's population continues to grow and age, increasing demands on transit service. Transit agencies need more funds to adjust to inflation and rising operational expenses. These pressures put current services at risk, and impact ability to meet community needs.

Transit and Amtrak ridership is rebounding from pandemic travel shifts

Transit ridership dipped sharply in 2020-2021 but many transit agencies are seeing a steady recovery in ridership. Much of this is due to state funding. 

  • Despite a declining rural population throughout the U.S., there has been an 8.6% increase in per-capita rural ridership over the last 8 years. 
  • Passeger rail ridership in Oregon was 35% higher at the end of 2023 compared to 2019, and November and December 2023 exceeded all previous years’ ridership for those months.
Sources: Oregon Transportation Information System, National Transit Database

A column chart that shows the average number of transit rides each year per Oregonian was 29.3 in 2019, 23.7 in 2020, 12 in 2021, 15 in 2022 and 16.8 in 2023. 


A column chart that shows the number of passenger rail and Cascade POINT riders was 175,118 in 2019, 56,058 in 2020, 94,256 in 2021, 142,065 in 2022 and 199,838 in 2023. 
Visit our Urban Mobility Office website to learn more
Public Transportation link button - click to visit 

To submit a question or comment:

Ask ODOT button - Click to visit the Ask ODOT form 
 

Strategic Action Plan Progress Report

Reduce Congestion in the Portland Region

2024-2028 Strategic Actions

2026 - Advance design and secure funding for construction of the I-5 Rose Quarter Improvements Project to provide smoother traffic flows, reduce crashes and enhance safety with ramp-to-ramp connections, and improve access for people walking, rolling and using transit.

2026 - Advance bridge tolling on the Interstate Bridge Replacement Program to provide revenue to modernize infrastructure, manage congestion, and support multimodal options.

2028 - Explore additional opportunities to expand bus on shoulder use in partnership with regional transit agencies and make additional state highway shoulder segments ready for bus on shoulder operations.

2028 - Actively participate in regional high-capacity transit project development.




2024 Efforts Underway

Strategic Action Plan

  • Finalized grant agreement (October 2024) with USDOT for Project's Reconnecting Communities and Neighborhoods $450 million grant award.
  • Working to adopt Concept of Operations for I-205 Clackamas County BOS corridor.
  • Completed: TriMet "A Better Red" project (construction of a second track and new station for inbound Max Red Line riders entering Gateway Transit Center).

Other Ongoing Efforts

  • Improving TripCheck, our state travel information website.
  • Employing ramp meters to smooth traffic flow and reduce congestion from merging.
  • Deploying Incident Response Program to effectively manage unexpected events causing delays like crashes, weather and vehicle breakdowns.

Strategic Action Plan Progress Report

Improve Access to Active and Public Transportation

2024-2028 Strategic Actions

Annual - Continue to improve accessibility for people experiencing disabilities within the pedestrian network, fulfilling ADA commitments focused on curb ramps.

2025 - Evaluate investments made and refine and streamline grants and programs to prioritize investments that advance climate, vehicle miles traveled reduction, equity and safety outcomes (focusing on vulnerable users).

2026 - Enhance trip planning tools to better connect travelers from origin to destination using multiple modes and integrate payment systems where feasible.

2028 - Define the multimodal network and establish priority corridors as part of the Oregon Highway Plan, to increase connectivity and access to key destinations, and integrate these corridors into investment decisions.




2024 Efforts Underway

Strategic Action Plan

  • Working to correct over 10% of non-compliant curb ramps planned annually.
  • Survey of ODOT grant managers to collect climate, equity and safety data to inform an opportunities memo.
  • Working with neighbor states on new software that will imrpove transit services.

Other Ongoing Efforts

  • Developing pedestrian and off-street path networks, including addressing missing sidewalks, curb ramps, and accessible pedestrian signals on road crossings.
  • Prioritizing safety, equity and addressing climate change in all the work we do, with a focus on the systems’ most vulnerable users (pedestrians and cyclists).