Regional Framework for Highway Jurisdictional Transfer Study November 2020 Final Regional Framework for Highway Jurisdictional Transfer Study i Metro respects civil rights Metro fully complies with Title VI of the Civil Rights Act of 1964 and related statutes that ban discrimination. 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 www.oregonmetro.gov/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) five business days before the meeting. All Metro meetings are wheelchair accessible. For up-to-date public transportation information, visit TriMet’s website at www.trimet.org. 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. Project web site: https://www.oregonmetro.gov/tools-partners/guides-and-tools/jurisdictional- transfer-assessment ii Regional Framework for Highway Jurisdictional Transfer Study Acknowledgments Metro Margi Bradway Tom Kloster John Mermin Oregon Department of Transportation Mandy Putney Glen Bolen Project Steering Committee Margi Bradway, Metro Tom Kloster, Metro Mandy Putney, ODOT Art Pearce, Portland Bureau of Transportation Kristin Hull, Portland Bureau of Transportation Jessica Berry, Multnomah County Chris Fick, Multnomah County Chris Deffebach, Washington County Stephen Roberts, Washington County Mike Bezner, Clackamas County Bernie Bottomly, TriMet Metro Council, JPACT, TPAC Consultants WSP Kirsten Pennington Liz Antin Geoff Gibson Mike Mason John Maloney Zoie Wesenberg Emily Wolff JLA Brandy Steffen Jaye Cromwell Regional Framework for Highway Jurisdictional Transfer Study iii Table of contents List of Abbreviations and Acronyms .........................................vi Executive Summary ....................................................................vii 1. Introduction .............................................................................1 2. Policy framework ....................................................................3 2.1 Roadway classifications ...........................................................................................................3 2.2 Legal considerations and legal process for transfer in Oregon ..............................6 2.3 Jurisdictional transfer process and considerations ......................................................8 3. Methodologies ........................................................................13 3.1 Round 1: Preliminary screening ...........................................................................................14 3.2 Round 2a: technical evaluation ............................................................................................15 3.3 Round 2b: readiness evaluation ..........................................................................................15 3.4 Equity considerations ..............................................................................................................16 4. Findings ....................................................................................19 4.1 Most promising candidates for jurisdictional transfer ................................................19 4.2 Round 1: preliminary screening results ............................................................................22 4.3 Round 2a: technical evaluation results .............................................................................24 4.4 Round 2b: Readiness Evaluation Results ..........................................................................27 5. Needs and deficiencies ...........................................................31 6. Cost estimating methodology ...............................................33 6.1 State of good repair .................................................................................................................34 6.2 Capital needs ..............................................................................................................................34 6.3 Maintenance and operation costs ......................................................................................35 6.4 Ownership costs ........................................................................................................................35 7. Conclusion ...............................................................................37 iv Regional Framework for Highway Jurisdictional Transfer Study Table of contents List of figures Figure ES-1: Corridors identified as promising candidates for jurisdictional transfer ............................................x Figure ES-2: Screening, technical evaluation and readiness evaluation process ......................................................ix Figure 2-1. Jurisdictional transfer process ................................................................................................................................9 Figure 2-2. Best practices for communication during a jurisdictional transfer process .........................................11 Figure 3-1. Metro RTP’s four pillars ............................................................................................................................................14 Figure 3-2: Metro’s Equity Focus Areas with the 17 arterial highway segments ......................................................18 Figure 4-1: Corridors identified as promising candidates for jurisdictional transfer ...............................................20 Figure 4-2. Round 1: preliminary screening results ..............................................................................................................23 Figure 4-3. Round 2a: technical evaluation results ...............................................................................................................26 Figure 4-4. Round 2b: readiness evaluation results ..............................................................................................................28 Figure 6-1. Seven steps to bring a corridor segment to a SOGR ....................................................................................34 List of tables Table 3-1. Metro’s regional averages for demographic data ............................................................................................17 Table 4-1. Round 1: Segments designated as OHP Expressway or RTP Throughway .............................................22-24 Table 4-2. Round 2a: Segments that scored high in the technical assessment .........................................................24-25 Table 4-3. Round 2b: Segments that scored high in the readiness assessment........................................................27 Attachments A. Inventory of Non-Interstate Highways .....................................................................................................................39 B. Policy Framework ..............................................................................................................................................................83 C. Corridor Segment Selection Methodology and Evaluation Results ..............................................................105 D. Equity Considerations .....................................................................................................................................................139 E. Needs and Deficiencies Assessment .........................................................................................................................165 F. Cost Estimating Methodology .....................................................................................................................................215 G. Roadway Classification Change Recommendations ............................................................................................229 Regional Framework for Highway Jurisdictional Transfer Study v List of Abbreviations and Acronyms ADA American with Disabilities Act FHWA Federal Highway Administration FTA Federal Transit Administration HB House Bill HDM Highway Design Manual HWY Highway I- Interstate IGA Intergovernmental agreement JPACT Joint Policy Advisory Committee on Transportation MPAs Metropolitan Planning Areas NHS National Highway System OAR Oregon Administrative Rule ODOT Oregon Department of Transportation OHP Oregon Highway Plan ROW Right of way RTP Regional Transportation Plan Study Regional Framework for Highway Jurisdictional Transfer Study TSP Transportation