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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, Transit Within Cities, Senior and Disabled Transit, Expanding Roads/Bridges, Reducing Traffic Congestion, and Sidewalks/Bike Lanes.

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.
  • 88% said that funding to add sidewalks and bike lanes to existing streets is important. 
  • 79% said that it is important to fund local public transportation services in cities. 

Source: Oregon Transportation Needs and Issues Survey (2025)

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 schedules 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

  • Population has increased 51% since 1990, while total VMT has increased 38%.
  • Per Capita VMT has declined 9% since 1990.

ODOT lane miles have grown less than 2% 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. 

Since 2000:

  • On interstates and freeways, including ramps and connectors - 106 lane miles added.
  • Other roads and intersections - 91 lane miles added. 
This represents a 1.7% increase in lane miles added since 2000.

Of those added lane miles:
  • 109 are through lanes (general purpose lanes, through movement lanes, etc.)
  • 88 are operational improvements (turn lanes, ramps, truck climbing lanes, etc.)

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. 

  • Evening speeds on the corridors shown on the right are consistenlty around or under 30 MPH. 


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 26 minutes, I-205, with potential added travel time of 25 minutes, I-405, with potential added travel time of 5 minutes, OR 217, with potential added travel time of 7 minutes and US 26, with a potential added travel time of 13 minutes. 
 

Source: 2024 Traffic Performance Monitoring

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 successful 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.

We also partner with local jurisdictions and transit agencies to bolster transportation options within the region and along ODOT-owned roads.
Projects
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: By end of 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.



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.
  • 15% 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.

Most people are driving alone during their commutes 

From 2023 there has been an increase in drive alone trips and decreases in walking, biking and transit. Polling found that:

  • 47% of respondents would take transit if service was added or improved in their area.
  • 36% of respondents would walk or bike if connections were added or improved in their area.

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 (2025)


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 11,188 curb ramps have been remediated with 16,416 remaining.

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 that the Statewide Transportation Improvement Fund Outcomes from July 2018 through December 2024 include 99 million miles of passenger service, 68 million passenger trips, 138,000 students with subsidized fares and over 400 vehicles purchased. 57 battery electric and 54 hybrid electric.
Source: Oregon Public Transportation System (OPTIS), STIF Periodic Reports

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. 
  • In 2024, Amtrak Cascades ridership between Eugene and Portland set records, exceeding pre-pandemic levels.


A column chart that shows the average number of transit rides each year per Oregonian was 23.7 in 2020, 12 in 2021, 15 in 2022, 16.8 in 2023, and 19.8 in 2024. 
A column chart that shows the number of Oregon Amtrak Cascades and POINT Cascades riders was 56,058 in 2020, 94,256 in 2021, 142,065 in 2022, 199,838 in 2023 and 239,995 in 2024.  
Sources: Oregon Transportation Information System, National Transit Database

Passenger Rail Ridership KPM
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Strategic Action Plan Progress Report

Reduce Congestion in the Portland Region

2024-2028 Strategic Actions

Ongoing - Support efficient operations through technological and multimodal solutions that improve traffic congestion. 

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.




2025 Efforts 

Strategic Action Plan

I-5 Rose Quarter Improvement Project:

  • Finalize Phase 1A design, to build the project's first package of work for stormwater improvements and bridge preservation. 
  • Complete 30% design for Main Construction Package, which includes the highway cover, relocated I-5 southbound off-ramp and the separated bicycle and pedestrian bridge.

Interstate Bridge Replacement Program:

  • Conduct level 3 Toll Traffic and Revenue Stated Preference Survey.
  • Conduct Hayden Island Ground Improvement Study to help manage risks related to construction cost and schedule.
  • Advance the program through the environmental process to modernize infrastructure and support multimodal transportation options.

Bus on Shoulder:

  • Adopt Concept of Operations for I-205 Clackamas County bus on shoulder corridor.
  • Request construction bids to prepare I-205 Clackams County corridor for Bus on Shoulder. 

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, equity and safety outcomes and reduce vehicle miles traveled (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.




2025 Efforts 

Strategic Action Plan

  • ADA ramp remediation.
  • Use the Capital Investment Plan goals and priorities to refine grant criteria specifc to each program.
  • Identify trip planning tools that integrate multiple modes and review the state of integrated payment systems.
  • Complete Priority Intercity Bus Network Study to identify corridors that offer increased connectivity for transit and integration with other transportation modes. Provide recommendations on enhancing service.

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).