City Council to consider options for Despain Ave Reconstruction

Pendleton City Council will consider options for the reconstruction of Northwest Despain Avenue, between North Main Street and Northwest Seventh Street, on Tuesday, April 4.

Northwest Despain Avenue is an older street that has deteriorated to the point that it needs a full reconstruction. The street within the project area is currently 30 feet wide from curb-to-curb and out of compliance with city codes. The street is considered substandard, so, in planning the reconstruction, City staff and engineers worked to bring the street into compliance. For the type of street Northwest Despain Avenue is used as, there are two options in the code, known as Option 1 and Option 2:

1. Repaving the street to a 32-foot span, adding ADA accessible curb ramps and bulb-out curbs to slow traffic as well as additional storm drainage systems. This option would expand the travel lanes to 12 feet in each direction.
2. Repaving the street to a 36-foot span, adding ADA accessible curb ramps, bulb-out curbs to slow traffic, and on-street parking on the North side of the road as well as additional storm drainage systems. This option would reduce the travel lanes to 10 feet in each direction.

Because city staff believes the larger travel lanes could increase traffic speeds on an already problematic road, they recommended the second option, which provides additional natural traffic controls through on-street parking on both sides of the road and a more narrow travel lane.  Bulb-outs, on-street parking, and narrow traffic lanes have been demonstrated to provide calming, or slowing, of traffic. More information on traffic calming can be found on the U.S. Department of Transportation website at https://www.transportation.gov/mission/health/Traffic-Calming-to-Slow-Vehicle-Speeds. Design drawings for each block of the project are included at the bottom of this page under "supporting documents."

During a recent City Council work session, community members petitioned for a third option, known as Option 3: 

• 3. Repaving the street in its current 30-foot span, adding ADA accessible curb ramps as well as additional storm drainage systems. This option would keep the travel lanes at the existing 11 feet in each direction. Information on bulb-outs and additional engineering would need to be solicited for this option before additional details could be finalized.

In addition to the street rebuilding and repaving, the reconstruction of Northwest Despain Avenue, regardless of which width option is selected, will require new curbs and gutters to meet standards, new storm drainage systems to meet standards, freeze/thaw protection of the street and installation of new ADA ramps with bulb-outs to meet federal requirements.

Engineering estimates for reconstructing Northwest Despain Avenue in the seven-blocks from Main Street to Northwest Seventh Street put a base cost for construction at $900,000; Option 1 would cost an additional $10,000 total for the seven-block area, and Option 2 would cost an additional $30,000 total for the seven-block area.

Pendleton Mayor John Turner has received a petition from area residents against the widening of Despain.  During a work session on Feb. 28, multiple petitioners addressed the council, requesting the street be rebuilt in its existing 30-foot width. Responses to resident concerns are including in the Frequently Asked Questions section below.

Based on public input, the Pendleton City Council asked City staff to draft proposals for Option 1, Option 2, and the Option 3 and present those to City Council at an upcoming meeting. Meeting agendas and packets are available at https://cityofpendletonor.civicweb.net/Portal/MeetingTypeList.aspx

In addition to the street reconstruction, City crews began work last week on the second phase of a related but separate project on Northwest Despain. The in-house project is replacing wastewater and storm drain lines along Northwest Despain to prepare for the street reconstruction. The second phase of those lines is from Northwest Sixth Street to Northwest Ninth Street and should be completed by no later than early April.

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Northwest Despain Reconstruction Frequently Asked Questions

Why is this project happening?

Northwest Despain Avenue is an older street that has deteriorated to the point that it needs a full reconstruction. In planning the reconstruction, City staff and engineers worked to bring the street into compliance with the city’s Ordinance No. 3845: Unified Development Code, last amended July 7, 2020, and approved by City Council.

Northwest Despain is classified as a collector, a moderately busy road that helps move local traffic onto major roads, called arterials. If Northwest Despain Avenue was built brand new in 2023, the road would be 48 feet wide from curb to curb and designed with no on-street parking, two 12-foot travel lanes, one center turn lane, and two bike lanes with a 35-mph speed limit. Instead, the current configuration for Northwest Despain is 30 feet wide from curb to curb with two 11-foot travel lanes, one 8-foot parking lane, no turning lane, and no bike lanes.

Because of its existing configuration, Northwest Despain functions not as a collector but as a neighborhood major residential street. The straight street still has the feel of a connector, however, so traffic tends to drive more quickly than the 25 mph speed limit for a residential street. Instead of reconstructing Northwest Despain as a connector road, City Staff opted to reconstruct it under the neighborhood major residential street guidelines, which, per ordinance and road design table, offers two options:

1. Widening the street by two feet to build out a 32-foot curb-to-curb street with two 12-foot travel lanes and one 8-foot parking lane if additional off-street parking is provided and it is located in steep terrain; otherwise,
2. Widening the street by six feet to build out a 36-foot curb-to-curb street with two 10-foot travel lanes and two 8-foot parking lanes as it does not have additional off-street parking and is not located in steep terrain.

City staff has proposed Option 2 in order to meet the reconstruction needs of the road, bring it into compliance, and improve traffic calming, or slowing, within the project area.

What are the proposals?

During a March meeting, the Pendleton City Council will consider three options for the reconstruction of Despain Avenue:

1. Repaving the street to a 32-foot span, adding ADA accessible curb ramps and bulb-out curbs to slow traffic as well as additional storm drainage systems.
2. Repaving the street to a 36-foot span, adding ADA accessible curb ramps, bulb-out curbs to slow traffic, and on-street parking on the North side of the road and reducing the travel lanes to 10 feet each direction as well as additional storm drainage systems,
3. Repaving the street in its current 30-foot span, adding ADA accessible curb ramps as well as additional storm drainage systems. Information on bulb-outs and additional engineering would need to be solicited for this option before additional details could be finalized.

How much will this project cost?

Rebuilding the street, storm drainage system, and new curb/gutters has a base cost of about $150,000 per block, or approximately $900,000 for the seven-block area slated for Northwest Despain Avenue reconstruction. Most of the costs for the project are fixed based on linear length of work, so the additional widening of the street has minimal costs: $10,000 total increase for Option 1, to widen from 30 to 32 feet, and $30,000 total increase for Option 2, to widen from 30 to 36 feet. The third option – reconstructing the street and its current width – does not meet adopted road standards and has not been engineered. If the City Council chooses to pursue Option 3, it would have additional engineering costs, potentially up to $72,000.

When will this project take place?

The Northwest Despain Reconstruction was planned for the 2023 construction season with completion in the fall of 2023. Because of the petition and delays in completing the design, the project has been moved to the 2024 construction season.

How were residents notified?

Engineering drawings to rebuild Northwest Despain according to Options 2 were approved in June 2022. Residents living within the proposed construction area were notified by a letter in August 2022. This letter described the project as:

“The street reconstruction project consists of reconstructing and widening the street and will include rebuilding the roadway, installing new curbs and gutters, some sidewalk replacement, and installation of ADA ramps.  Several utilities will have to be moved in the right-of-way as part of the road widening as well.”

The letters were sent only to those whose property faces the impacted area of Northwest Despain Avenue, known as the frontage property. A press release was sent to local media and posted on the City of Pendleton in August 2022.

The Public Works Director received contact from only one area resident, and the City then moved forward with contacting utility providers to move utility poles, which began in early 2023. At the point of the utility construction, area residents voiced concern about the proposed widening.

Addressing concerns raised by petitioners:

A petition against the widening of Despain has been submitted to Mayor John Turner. During a recent work session, multiple Pendleton residents addressed perceived safety concerns about the widening.

1. Traffic speeds on Despain
   • During the Feb. 28 work session, multiple petitioners addressed the council and comment on concerns about the speed limits on Despain and the speed motorists travel. Resident suggests for calming traffic included installing speed bumps or lowering the road speed limit to 15 mph.
   • Speed bumps are not recommended or safe for that roadway because of traffic amounts, speed limits, and travel by large vehicles, such as school busses and Let’er Bus Transit. City staff has offered a raised sidewalk, similar to those on Main Street in downtown, could be considered at the intersection with Fourth Street.
   • In addressing the proposed lowered speed limit, the State of Oregon establishes speed zones either by statute or through an engineering and traffic investigation to create a designated speed. State statutes give Oregon motorists the following statutory speed limits: 15 mph - Alleys and narrow residential roadways; 20 mph - Business districts, school zones and some residential; and 25 mph - Residential districts, public parks and ocean shores.
   • The Option 2 proposal from City Staff, including traffic expert Tim Simons, includes three elements proven to calm, or slow, traffic: narrowing the traffic lanes, adding on-street parking, and adding bulb-outs.  Click here for the federal Department of Transportation page on traffic calming.
2. Sight considerations in the driveway at Buckin’ Bean Coffee Roasters
   • Because of large retaining walls on each side, the exit driveway at Buckin’ Bean already forms a blind corner where drivers exiting the business cannot see pedestrians walking on the sidewalk on the North side of Despain Avenue. In order to resolve this existing safety issue and the concerns raised about parked vehicles blocking visibility for vehicles exiting onto Despain, City staff would recommend reversing the traffic flow to the business. If customers entered the business parking lot from Despain into the current exit, it would allow drivers a clear view of pedestrians and other traffic while entering the business. Vehicle traffic would then exit the parking lot onto Fourth Street, the current parking entrance, and rejoin traffic on Despain at the four-way stop.
3. Impacts of road work on Buckin’ Bean Coffee Roasters
   • Despain Avenue has deteriorated to the point that it needs a full reconstruction. The construction period and impact to the business will be the same regardless of which option is selected.  In addition to the street rebuilding and repaving, the reconstruction of Northwest Despain Avenue, regardless of which width option is selected, will require new curbs and gutters to meet standards, new storm drainage systems to meet standards, freeze/thaw protection of the street and installation of new ADA ramps with bulb-outs to meet federal requirements.

Clarifications

1. Right of Way
   • Some petitioners have referenced losing property or easements with the proposed expansions. The proposed expansion would take a portion of the public right-of-way on Despain Avenue. An easement gives one entity the right to use the property of another for access, such as allowing a landlocked house a driveway through someone’s property or allowing an electrical company the space to install and maintain power lines to a home. A Right of Way, however, is established to create travel solutions and is considered public property. The jurisdiction of the Right of Way goes to the governing body, which, in the case of Northwest Despain Avenue, is the City of Pendleton. Northwest Despain Avenue has a 78-foot right-of-way from Main Street to Northwest Fourth and a 70-foot right-of-way from Northwest Fourth to Northwest 14th.
   • Those property owners and residents whose Right of Way would be impacted are those that were notified by letter from The City of Pendleton in August of 2022 about the proposed widening. Residents outside of the project area were not notified, per standard City procedure.
   • The widening of the street would be contained within the existing right-of-way.
2. Road Design Table
   • Every seven years, the City of Pendleton updates its Transportation System Plan, which classifies streets and outlines road design standards. The road design standards must be consistent with rules from the American Association of State Highway and Transportation Officials (AASHTO) and the Federal Highway Administration on Uniform Traffic Control Devices (MUTCD). The Transportation System Plan updates are publicized, and public comment is encouraged. The next Transportation System Plan update will take place in 2027.
   • The road design standards include information on the Right of Way, lanes, width, and sidewalk requirements for each type of street. Constructing a road against those approved guidelines can only be done by a vote by the Pendleton City Council because if the change is determined to be substandard, the road may not be eligible for federal funding.
3. Stop Signs
   • There is no plan to remove stop signs on Northwest Despain Avenue.
4. Trees
   • Any trees with significant root structure impacted by the reconstruction or widening could be removed as part of the project. A replacement tree will be provided as part of the project for any removed trees.

Additional Considerations

Water Main construction: The Option 1 and Option 2 designs of the Northwest Despain Reconstruction feature engineering for installing a new water line in the expanded area where no existing conflicts exist. Without the expansion, this water main will need to be fit alongside existing city utilities, including the old water line and sewer main, as well as pipelines for Cascade Natural Gas, which also run in the same area. This project is scheduled for the 2023 construction season.

What work is happening on Despain now?

In addition to the street reconstruction, City crews began work this week on the second phase of a related but separate project on Northwest Despain. The in-house project is replacing wastewater and storm drain lines along Northwest Despain to prepare for the street reconstruction. The second phase of those lines is from Northwest Sixth Street to Northwest Ninth Street and should be completed by no later than early April.