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MAX Light Rail

Light rail system in Portland, Oregon since 1986

  • 32 min read
  • 8 chapters

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Through Train

MAX was among the first second-generation light rail systems built in the United States, emerging from freeway revolts in the 1970s. Planning for its inaugural eastside segment, then known as the Banfield Light Rail Project, began in 1973 after the cancellation of the Mount Hood Freeway. Construction started in 1982, and service between downtown Portland and Gresham commenced on September 5, 1986. The system has since expanded several times, most recently with the opening of the Portland–Milwaukie extension in 2015.

MAX is one of three urban rail systems in the Portland metropolitan area, alongside the Portland Streetcar and WES Commuter Rail. MAX connects directly with these systems and with other services, including Amtrak, Frequent Express, and local and intercity buses. Trains operate in consists of up to two cars due to Portland's short downtown blocks. All vehicles and platforms are accessible, and fares are collected using the Hop Fastpass payment system.

History

Predecessors

In the early 20th century, privately funded interurbans and streetcars gave Portland one of the largest urban rail systems in the American West, with lines that once extended as far north as Vancouver, Washington, south as Eugene, east as Troutdale, and west as Forest Grove. Ben Holladay brought Portland's first trolleys from San Francisco in 1872; drawn by horses and mules, they were operated by the Portland Street Railway Company. In 1890, the first electric streetcar opened in Albina while the first cable car began serving 5th Avenue; these marked the start of an era of major rail expansion. In 1892, the East Side Railway Company opened the first long-distance interurban line—a 16-mile (25.7 km) route from Portland to Oregon City. The Portland Railway, Light and Power Company had taken over all local streetcars by 1906, and interurbans by 1908. In 1912, as Portland's population exceeded 250,000, transit ridership stood at 70 million passengers annually. Passenger rail services had started to decline by the 1920s with the rise of the automobile and suburban and freeway development. Portland's original streetcar lines had ceased operating by 1950, replaced by buses until 2001, when the modern Portland Streetcar opened in downtown Portland. The region's last two interurban lines, which traveled to Oregon City and Bellrose (Southeast 136th Avenue), permanently closed in 1958.

Early beginnings

At the height of local freeway revolts in the 1970s, studies for public transit began using funds made available by the Federal-Aid Highway Act of 1973. These funds had been intended for the Mount Hood Freeway and Interstate 505 (I-505) projects, which were abandoned amid strong opposition from the Portland city government and neighborhood associations. In 1973, Governor Tom McCall assembled a task force that helped determine several alternative options, including a busway and light rail. Local jurisdictions originally favored the busway alternative, but support for light rail prevailed following the mode's inclusion in a 1977 environmental impact statement. The proposal became known as the Banfield light rail project, named for the Banfield Freeway, a segment of I-84 that part of the alignment followed. TriMet approved the project in September 1978. Construction of the 15.3-mile (24.6 km), 27-station line between 11th Avenue in downtown Portland and Cleveland Avenue in Gresham began in March 1982. Inaugural service commenced on September 5, 1986. Less than two months before opening, TriMet adopted the name "Metropolitan Area Express", or "MAX", following an employee contest.

As the planning of a light rail line to the west side gained momentum in the mid-1980s, the original MAX line came to be referred to as the Eastside MAX to distinguish it from what would become the Westside MAX extension. Early proposals called for the extension to terminate just west of the Beaverton–Hillsboro boundary on 185th Avenue in Washington County. A dispute between TriMet and the Urban Mass Transportation Administration over a financing plan suspended the project for several years but planning resumed in 1988 and studies were completed in 1991. Staunch lobbying by local and state officials led by Hillsboro Mayor Shirley Huffman forced an extension of the line further west to downtown Hillsboro in 1993. Construction of the 20-station, 18-mile (29 km) line began that August with the excavation of the Robertson Tunnel. The Westside MAX opened in two stages following delays in tunneling: the section from 11th Avenue to Kings Hill/Southwest Salmon Street was opened in 1997 and the section to Hatfield Government Center—the segment's current western terminus—was opened in 1998. The resulting 33-mile (53 km) MAX line began operating as a single, through service on September 12, 1998.

South/North plan

At the same time TriMet was planning the Westside MAX in the mid-1980s, Metro regional government announced new light rail proposals for Clackamas County. Its planning committee—the Joint Policy Advisory Committee on Transportation (JPACT)—proposed two separate routes that would have run between downtown Portland and Oregon City via Milwaukie and between Portland International Airport and Clackamas Town Center via I-205. Further planning led JPACT to favor the I-205 corridor due to an existing right-of-way along the I-205 Transitway, an unfinished mass transit component of the freeway that had been built to accommodate a busway. TriMet, however, prioritized the Westside MAX during its bid for federal matching funds and the I-205 plans were put on hold. In 1989, studies for both I-205 and Milwaukie proposals received funding from the U.S. Senate Committee on Appropriations under the condition that they included potential route extensions to Clark County, Washington. Metro completed the studies in 1993, ultimately abandoning I-205 in favor of a route along the I-5 and Willamette River corridors. It finalized a single 25-mile (40 km) line from Hazel Dell, Washington south to Clackamas Town Center via Milwaukie, which Metro and TriMet formally named the South–North Line. Metro said it adopted the name "South/North" instead of the more conventional "North/South" word order, at the request of representatives in the southern part of the corridor after the southern leg, which had long been planned to be the next-priority MAX corridor after the Westside line, was merged with the northern leg as a single proposed project.

In November 1994, 63% of Portland area voters passed a $475 million ballot measure to fund Oregon's portion of the project. The following February, however, Clark County residents defeated a tax measure that would have funded Washington's share. To move the project forward, TriMet downsized the plan and abandoned the line's Clark County and North Portland segments up to the Rose Quarter. That July, the Oregon House of Representatives approved a $750 million transportation package, which included $375 million for the scaled-back line. The funding was annulled by the Oregon Supreme Court due to the inclusion of unrelated measures that violated the state's constitution. The legislature met again in February 1996 and passed a revised $375 million package, but light rail opponents forced a statewide vote and defeated it the following November. A third proposal between Lombard Street in North Portland and Clackamas Town Center followed. This time, Metro and TriMet pursued the project without seeking contributions from either Clark County or the state, instead sourcing funds from Clackamas County and Portland. In 1998, TriMet placed a new ballot measure to reaffirm voter support for the $475 million originally approved in 1994. The measure failed by 52% in November of that year, effectively canceling the proposed line.

Airport and Interstate lines

Driven by the rapid expansion of Portland International Airport in the 1990s, the Port of Portland explored ways to ease growing traffic congestion, including introducing MAX service decades earlier than regional planners had anticipated. In 1997, engineering firm Bechtel accelerated the effort with an unsolicited proposal to design and build the airport rail link in exchange for 120 acres (49 ha) of Port property. A public–private partnership was formed, and construction of the Airport MAX began in June 1999. With right-of-way already secured and no federal funding requested, the project was completed in four years, and the four-station, 5.5-mile (8.9 km) branch line between Gateway Transit Center and the airport opened on September 10, 2001. Celebrations planned for that weekend were cancelled in the aftermath of the September 11 attacks. To service the new route, TriMet enacted a color-coded route naming scheme: Blue Line for trains running between Hillsboro and Gresham and Red Line for trains running between the airport and downtown Portland. On September 1, 2003, the Red Line was extended west to Beaverton Transit Center to relieve Blue Line overcrowding and provide a one-seat airport connection for the west side.

In 1999, Portland business leaders and residents opposed to the cancellation of the South/North project urged TriMet to revive it. TriMet responded with a scaled-back proposal extending MAX only to North Portland via North Interstate Avenue. Construction on the Interstate MAX began in February 2001. To reduce taxpayer costs, the city created an urban renewal district, while federal matching funds from the locally funded Airport MAX and Central City Streetcar projects were redirected to the line. The 10-station, 5.8-mile (9.3 km) extension from Rose Quarter Transit Center to the Portland Expo Center opened on May 1, 2004, as part of the Yellow Line. From 2004 to 2009, the Yellow Line ran from Expo Center station to 11th Avenue in downtown Portland, sharing tracks with the Blue and Red lines across the Steel Bridge. On August 30, 2009, it was rerouted to the PSU Urban Center stations following the addition of light rail to the Portland Transit Mall. In September 2012, service was extended farther south to the PSU South stations, which had been delayed by nearby transit-oriented development. Since 2015, the Yellow Line has interlined with the Orange Line and now operates only the northbound segment of the transit mall.

South Corridor extensions

In 2001, Metro revisited its former light rail plans for Clackamas County and reconsidered proposals similar to those of the canceled south–north project, with two routes extending to Clackamas and Milwaukie. This resulted in a new study, which Metro referred to as the South Corridor transportation project, that evaluated light rail among other alternatives. The study's task force recommend both light rail options in 2003 and suggested splitting the project into two phases. The first phase planned for the addition of light rail to I-205, between Gateway Transit Center and Clackamas Town Center. In October of that year, the first phase plans were amended to include adding light rail to the Portland Transit Mall following a petition from Portland business leaders. The combined project was approved for federal funding in 2006 and work began in January 2007. Light rail commenced service along the 14-station, 1.8-mile (2.9 km) Portland Transit Mall on August 30, 2009, first served by the Yellow Line. The opening of the eight-station, 6.5-mile (10.5 km) I-205 MAX and Green Line service followed on September 12.

The South Corridor project's second phase initially proposed the extension of MAX between downtown Portland and Milwaukie via the Hawthorne Bridge. Studies showed that this alignment would cause severe traffic bottlenecks in downtown. As a result, Portland businesses pushed for the construction of a new bridge further upstream that led to the southern end of the Portland Transit Mall. The locally preferred alignment was finalized in mid-2008; a new bridge would carry light rail across the Willamette River from the South Waterfront to just south of the Oregon Museum of Science and Industry (OMSI). TriMet designed this bridge, which was eventually inaugurated as Tilikum Crossing, to be "car-free" and to accommodate only transit vehicles, bicycles, and pedestrians. Construction of the line began in June 2011. In September 2012, opponents passed a ballot initiative—with 60% of the vote—requiring all Clackamas County spending on light rail to be approved by voters. Following the county's attempt to end its involvement and a suit filed by TriMet, a circuit court upheld the project's continuation. The 17-station, 7.3-mile (11.7 km) Portland–Milwaukie segment and Orange Line service opened on September 12, 2015. The Orange Line, operating along the Portland Transit Mall's southbound segment, became the third service to serve this corridor.

Red Line track improvements and extension to Hillsboro

In October 2017, TriMet, citing system-wide delays caused by two single-track segments along the Airport MAX, announced the MAX Red Line Improvements Project, later renamed "A Better Red". A Better Red sought double-tracking a 2,800-foot-long (850 m) section of track north of Gateway Transit Center and another 3,800-foot-long (1,200 m) section alongside Northeast Airport Way just before the airport terminal. To qualify the project for federal funding, TriMet included extending Red Line service farther west to Fair Complex/Hillsboro Airport station in Hillsboro; this extension would use existing Westside MAX tracks and create a one-seat option from 10 additional stations to Portland International Airport. Additionally, TriMet had announced it would procure up to eight new light rail vehicles to accommodate the improvements, but later purchased 30 new trains overall; four were part of A Better Red, while the remaining 26 were replacements for the original MAX fleet, which are gradually being retired.

Preliminary design work began in February 2018. TriMet adopted a locally preferred alternative in April 2019, and the FTA announced $99.99 million for the project through the Capital Investment Grants program in May 2020. Final design was completed by engineering firm Parametrix in early 2021. The design includes two new bridges north of Gateway Transit Center to accommodate the second track and a new MAX platform called "Gateway North". TriMet broke ground on September 28, 2021.

From April 2–9, 2022, Red Line service was suspended to make way for construction, and shuttle buses operated between Gateway Transit Center and Portland International Airport. The project was completed in March 2024.

From June 18 to October 21, 2023, TriMet suspended MAX service between Gateway Transit Center and the airport to allow for construction of the second track between the airport and Mount Hood Avenue.

From January 14 to March 3, 2024, TriMet suspended MAX Red, Blue and Green Line service between NE 7th and Gateway Transit Center. Inbound Red Line trains from PDX began serving Gateway North on March 4, 2024. These projects eliminated the last bidirectional single-track sections on the MAX system.

The Red Line extension to Hillsboro began service on August 25, 2024, with a soft launch, with the full launch beginning on August 28. Fair Complex/Hillsboro Airport station was also renamed to Hillsboro Airport/Fairgrounds station.

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