Design-Build Contract Awarded
The Virginia Department of Transportation (VDOT) authorized the award of the Route 28 Widening Project contract on May 12, 2020, to Shirley Contracting Company, LLC, based on their bid of $56,882,900. Fairfax County approved the award of the contract on May 22, 2020.
Design Public Hearing Held Sept. 23; Comments Closed Oct. 7, 2019
FCDOT held a Design Public Hearing for the Route 28 Widening Project on Monday, Sept. 23, 2019, 6:30 - 9 p.m., in the cafeteria of Centreville Elementary School, 14330 Green Trails Blvd., Centreville. A formal presentation was held at 7 p.m., and presentation materials are posted below:
The Full Plan Set (51 MB) is available by contacting the project team by using the feedback button below or by calling 703-877-5600, TTY 711. The comment period for the Route 28 Widening Project closed Oct. 7, 2019.
FCDOT ensures nondiscrimination in all programs and activities in accordance with Title VI of the Civil Rights Act of 1964 and the Americans with Disabilities Act (ADA). If you need this information in an alternate format or would like to request reasonable accommodations for persons with disabilities or limited English proficiency, contact FCDOT at 703-877-5600, TTY 711. Requests for assistance must be received at least 7 business days in advance of an event.
In accordance with the National Environmental Policy Act (NEPA) and 23 CFR 771, a Categorical Exclusion (CE) was prepared in cooperation with the Federal Highway Administration (FWHA) for the project. The CE was submitted to VDOT on July 15 and on FWHA found the Draft NEPA Documentation to be acceptable to support the original Categorical Exclusion determination on July 19, 2019.
Summaries of the technical documentation on historical resources, the preliminary noise analysis and correspondence are posted below:
For more information on the Categorical Exclusion and technical documents, please contact the project team by using the feedback button below or calling FCDOT at 703-877-5600. The deadline for comments regarding the Categorical Exclusion closed on Sept. 25, 2019.
Route 28 serves residential and business destinations from Remington in Fauquier County to Route 7 in Loudoun County, connecting Route 29, Route 234, I-66, Route 50, Dulles International Airport and Route 267 in between. The corridor has experienced increased congestion for many years, particularly in Prince William and Fairfax Counties south of I-66. To address this congestion, the Fairfax County Department of Transportation (FCDOT) proposes widening Route 28 for a distance of approximately 2.3 miles from the existing bridge over Bull Run to the interchange at Route 29. The project includes:
The project was endorsed by the Fairfax County Board of Supervisors as part of the County’s Transportation Priorities Plan (TPP) on January 28, 2014 (Project ID#62).
Fairfax County and the D-B contractor will coordinate with property owners well in advance of construction. Work hours are set by VDOT and Fairfax County. Night work is likely. The D-B contractor will be required to maintain pedestrian and vehicular traffic and signals during construction. No lane closures will be allowed during peak travel hours.
Statements of Qualifications for the RT 28 Design-Build project were received from the following firms on May 24, 2019. Technical proposals were received from short listed firms on March 6, 2020. Price proposals were received from the short listed firms on March 27, 2020.
|Offerers||Short List||Final Ranking||Contract Awarded|
|Archer Western/STV||Branch/RDA||Shirley/Dewberry||Contract Award|
|Fort Myer/Volkert||Shirley/Dewberry||Lane RK&K|
FCDOT will use the Design-Build (D-B) procurement method to deliver the project. D-B allows for more rapid implementation of projects by combining and overlapping the design, right-of-way, utility relocation and construction phases.
FCDOT has held three community meetings on the Route 28 widening project. Please see the presentation files below for more information.
VDOT Project Number:
0028-029-269, P101, R201, C501
VDOT UPC: 108720
FCDOT Project Numbers:
Fund 40013: 2G40-136-000
Fund 40017: 2G40-100-000
Fund 50000: AA1400143-17
Federal Project Numbers:
The current project design plans are approximately 30 percent complete. This preliminary design provides for the widening of Route 28 between Compton Road and Route 29 to a six lane divided highway, while not to precluding a future widening to 8-lanes. FCDOT completed a draft report of the traffic analyses to determine the optimal number of lanes that will be required to provide an acceptable traffic flow in the future. For additional information on the traffic analysis, see the Traffic Analysis and Widening Options
Please note: These plans are preliminary and are subject to change as the design progresses. Additional easements may be needed for utility relocation and potential noise walls. Potential noise wall locations are shown on the plans. Typical sections do not illustrate all conditions along the proposed roadway alignments.
The County’s Comprehensive Transportation Plan describes Route 28 as eight lanes with High Occupancy Vehicle (HOV) lanes, and a future interchange at New Braddock Road. The project design will not preclude future widening to eight lanes, future HOV or a future interchange at New Braddock Road.
The proposed Design-Build project schedule includes:
For more information, see the Alternative Delivery Methods and Schedule Comparison.
The section of Route 28 between the Prince William County/Fairfax County line (at the bridge over Bull Run), and the existing interchange at Route 29 is a four-lane divided highway that currently carries approximately 60,000 vehicles per day (vpd). Between Route 29 and New Braddock Road, the southbound side of the roadway is currently three lanes wide. Along this 2.3 mile segment, there are five signalized intersections located at Compton Road, Old Mill Road/Green Trails Blvd., New Braddock Road, Machen Road and Upperridge Drive/Old Centreville Road. In addition, there are three un-signalized median crossovers (one U-turn south of Compton Road, Bradenton Drive and Darkwood Drive), and one right-in/right-out intersection on the northbound side of Route 28 (Tallavast Drive).
Traffic counts were collected in 2016 and analyzed to determine the operational characteristics of the Route 28 corridor under existing conditions. During the AM peak period, one signalized intersection operates at Level of Service (LOS) F (New Braddock Road), and two operate at LOS D (Compton Road and Upperridge/Old Centreville). Based upon field observations, the queues generated by these poorly operating intersections result in spill back to upstream intersections throughout the length of the corridor. In the AM, these queues spill back well into Prince William County. During the PM peak period, three intersections operate at LOS F (New Braddock Road, Machen Road and Upperridge/Old Centreville) and one other signalized intersection operates at LOS E (Compton Road.) Queue spill back during the PM peak severely degrades operations at upstream intersections, however, the spill back rarely impacts or affects operations at the Route 28/Route 29 interchange or the interchange on Route 28 at I-66.
A study completed by VDOT in 2015 of the safety and operational characteristics of Route 28 between Liberia Avenue (in the City of Manassas) and just south of I-66 provides confirmation of the operational deficiencies found along Route 28. The VDOT report indicated average AM peak period travel times between Liberia Avenue and I-66 of 46 minutes, and average PM peak period travel time of 18 minutes to cover this approximately six (6) mile distance.
Please note: Some sections below reference Levels of Service or “LOS.” Level of Service is a measure of the relative quality of traffic congestion, based on performance measures such as traffic speed and density. LOS “A” is free flow of traffic; LOS “F” is breakdown flow or gridlock.
FCDOT began preliminary design on the project in 2016. The initial project scope proposed widening Route 28 from a four lane divided roadway to a 6-lane divided roadway with a shared use path on both sides of the roadway. The initial traffic analysis for a 6-lane section indicated that traffic volumes in the year 2040 would result in LOS F at one intersections (Compton Road) during the AM peak period. Three of the five intersections were expected to operate at LOS E during the PM peak period. As under existing conditions, queue spill back from these poorly operating intersections is anticipated to degrade operations of the upstream intersections. The anticipated growth in traffic volumes reduced or eliminated any benefits of the proposed widening. Congestion in both directions was due to inadequate capacity; but congestion in the southbound direction (at the PM peak) was also caused by queue spill back from heavy volumes on Route 28 to the south of the FCDOT widening, in Prince William County.
As a result of this initial analysis, FCDOT performed a series of traffic analyses on several possible lane configurations for Route 28 in order to optimize the proposed improvements and traffic operations along the corridor. These concepts included; 1) widening Route 28 to seven (7) lanes (4-northbound, 3-southbound); 2) widening Route 28 to eight (8) lanes (4-lanes northbound and southbound); and 3) a hybrid of the original scope and concept 1 and 2 (6-7-8 lanes). Based upon the results of the traffic analysis, FCDOT selected the Hybrid 6-7-8 lane Option as the preferred design as it met the anticipated traffic demand and achieved the desired traffic operational results while minimizing costs and impact to the community and environment.
In early 2018, FCDOT submitted a request to NVTA for additional funds to complete project funding for the Hybrid 6-7-8 lane option. Due to the Virginia General Assembly’s reallocation of funds from NVTA to WMATA, , when NVTA’s FY 2018-2023 Six Year Program was approved on June 14, 2018, only $16 million was awarded to the project. As a result of this reduced funding, the County was forced to reassess what improvements could be completed with available funds. Thus, instead of building the preferred Hybrid 6-7-8 lane option, the project is now limited to building only 6-lanes at this time . It should also be noted that an additional $7,794,999 in local funds has been allocated by the County in order to construct 6-lanes.
The traffic analysis was updated in October 2018 to evaluate traffic operations of the Route 28 6-Lane design alternative in the anticipated opening year, 2023, and the future design year 2040. The study was to determine if the additional lanes in each direction on Route 28, as well as other intersection improvements, were sufficient to provide acceptable operations in the Opening Year 2023; the resultant operations in the future design year 2040, and determine when additional improvements above and beyond the 6-lane design would be required. Each intersection analyzed in this study was improved to nearly the maximum extent practical using conventional intersection layouts.
A VJUST (VDOT Junction Screening Tool) analysis was also performed to evaluate alternative intersection designs. This analysis found that based on operating characteristics, construction constraints and right-of-way constraints, alternative intersection designs, while technically feasible, provided neglible benefits and were thus not cost effective.
The results show that the 6-lane design will provide for reasonable traffic operations in the Opening Year 2023: All the intersections on the Route 28 mainline corridor within the study area are expected to operate better than or approximately equal to existing conditions in both the AM and PM peak periods. Only one intersection(New Braddock during the AM peak) is expected to operate at LOS E in 2023, with all remaining intersections operating at LOS D or better. The results also identify average and maximum queuing, and provide input regarding the recommended turn bay lengths for the design.
In the 2040 6-Lane Build Alternative, one intersection (New Braddock) is expected to fail in the AM peak (with an LOS of F); no intersections are expected to fail in the PM peak. In the PM peak in 2040, three intersections are expected to operate at LOS E conditions, with a fourth at borderline LOS D/E conditions. The results indicate that the 6-Lane Build alternative shows an improvement to LOS, delay, and travel times as compared to the No-Build condition. Through the analysis, it has been determined that, based upon estimated travel time results, the 6-Lane alternative will potentially fail by the year 2040, and Route 28 would operate with similar travel times as existing conditions. It is estimated that additional widening, either to the 6-7-8 lane Hybrid option or to 8-lanes will be required sometime between 2035 and 2040.
Due to the reduced project funding, FCDOT is now proceeding with a phased approach to provide the roadway as a 6-lane section, with a design that will not preclude future widening to an 8-lane section as called for in the County’s Comprehensive Transportation Plan. The traffic analyses indicate that the 6- lane section will provide a sufficient and acceptable operations in the opening year of 2023. However by 2040, the 6-lane section will operate with similar travel times as existing conditions. VDOT Northern Virginia District staff have indicated they support the County’s plan to construct the 6-lane option as an interim (phased) widening in the corridor. The County intends to continue to pursue funding in the future to widen Route 28 to an eventual 8-lane facility and to construct needed improvements prior to failure of the 6-lane alternative.
This table compares average intersection delays and Levels of Service (LOS) at each signalized intersection in the corridor based on :
The table also shows corridor travel times based on the traffic analysis.
Following the results of the traffic analysis, FCDOT developed concept level plans (approximately 15% complete) for an 8-lane widening of Route 28 between Compton Road and Route 29. The 8-lane concept level plan was utilized as a “base line” to evaluate various factors, including but not limited to: total project cost, right-of-way, design, construction, schedule, risk, environmental impacts and mitigation, utility relocation, maintenance of traffic, and constructability. This concept design was further developed to a Preliminary 30% plan for a 6-lane widening, based on the ultimate 8-lane design. The 6-lane design allows future widening to be constructed in the median. No additional right-of-way should be required for future widening to an 8-lane section.
These plans are preliminary and are subject to change as traffic analyses are refined and design progresses. Additional easements may be needed for utility relocation and potential noise walls. The plans indicate the locations of potential noise walls, based on the noise analysis.
The 8-lane section, as presented, represents the “worst” case scenario for the proposed improvements to Route 28, and as such, is representative of the anticipated maximum impacts that may result from the proposed roadway widening.
The preliminary 6-lane plan widens the northbound roadway by adding one lane to the outside. South of New Braddock Road, the centerline of the southbound roadway is shifted approximately 5 feet toward the median. Widening to add one additional southbound lane is constructed on both the outside and inside of the southbound roadway.
On the northern end of the corridor, north of New Braddock Road, both the northbound and southbound roadways are proposed to be closed sections, with curb and gutter and closed drainage systems. South of New Braddock Road, a shoulder section is proposed on the outside of both the northbound and southbound lanes. However, curb and gutter is proposed along all left and right turn lanes. The proposed outside shoulder section is a safety feature providing safe pull off areas for vehicle breakdowns, accidents, and police enforcement areas.
Future widening to an 8-lane section would add one lane to the inside (or median side) of each roadway. A raised median, with median curb, is proposed along the entire length of the corridor as part of the future widening. Due to the existing differences in elevation between the northbound and southbound lanes, retaining walls will be required in the median at several locations.
Because of the increase in impervious area, storm water management facilities will be required to control storm runoff water quality and quantity. The preliminary storm water management design, as shown, is based upon the ultimate eight-lane configuration of Route 28 and upon preliminary calculations of storm water management requirements in accordance with Fairfax County storm water management criteria. Potential storm water management facilities necessary to meet these requirements are shown on the concept plan, and are located on vacant parcels adjacent to the project.
The project may also improve traffic operations between Compton and Ordway Roads and Route 28. The options initially under consideration included an additional left turn lane from eastbound Compton Road to northbound Route 28, and additional right-of-way of varying amounts depending on the option. The options include:
Preliminary traffic analyses indicated that only Options 1 and 4 provided significant improvements to traffic flow. Due to funding constraints, the Request for Proposal (RFP) includes Option 1 only.
Prince William County (PWC), the City of Manassas, and the City of Manassas Park, in cooperation with VDOT, are presently preparing an Environmental Assessment (EA) to evaluate the potential social, economic, and environmental effects associated with proposed improvements in the Route 28 corridor between Sudley Road in Prince William County and Compton Road in Fairfax County. Information on this study is available at www.route28study.com.
The EA will evaluate three alternatives developed in the December 2017 Route 28 Corridor Feasibility Study. Limited funding is available for this project and no date has been proposed for construction[MWT2] . No major capacity improvements to Route 28 south of the Bull Run bridge are expected to be complete before 2025.
FCDOT’s Route 28 widening project will not preclude the construction of any of the alternatives in the Prince William County study. FCDOT will continue to coordinate with Prince William County as both projects progress.
Since the proposed widening takes advantage of the wider right-of-way available on the northbound side of the roadway, and the southbound centerline is proposed to be shifted approximately 5’ towards the median, right-of-way requirements for the roadway widening are minimized. Right-of-way required for the road widening itself are anticipated to be partial property takes of five to twenty feet in width, abutting the existing right-of-way on Route 28 and intersecting streets. Additional easements may be required for utility relocation, particularly along the southbound side between New Braddock Road and the bridge over Bull Run, and for any potential sound barrier walls that may be needed based upon the final Noise Analysis, and VDOT noise abatement policy.
Storm water management (SWM) for the project will require acquisition of several larger parcels (which may include full takes) outside the existing right-of-way. The extent of the land rights required will be contingent upon the storm water management criteria that will be applicable to the project and the final storm water management design. FCDOT will require the Design Builder to prepare a design and acquire adequate right-of-way for storm water management facilities to serve the ultimate 8-lane section.
If funding is available, the realignment of the Compton/Ordway/Old Centreville Road intersection may require partial or full takes of several adjacent properties, depending on the final design.
With the exception of the land rights required for storm water management facilities, the ultimate eight-lane design can be designed and constructed without significant additional right-of-way requirements beyond the initial 6-lane section. The 6-lane widening project will acquire adequate right-of-way for the widening of the ultimate 8-lane design even though the design will be for 6-lanes in the interim.
Based on the current design, FCDOT does not anticipate the project will require any relocations or displacements of residents or businesses.
Land Acquisition Agents from the Design Build Team will contact property owners to negotiate fair compensation for land rights required to construct the project. Land acquisition must be completed in accordance with federal, state and local laws, regulations and procedures.
FCDOT has delineated utilities within the project site and excavated 76 test holes at locations where potential utility conflicts may exist. FCDOT held a Utility Field Inspection (UFI) in August 2017 with affected utilities. Additionally, using recent 30% design plans, FCDOT will be conducting more detailed UFI meetings with each individual utility company in February and March 2019.
Utilities with facilities in the project area include:
FCDOT anticipates the project will require utility relocations similar in scope to other projects in Fairfax County of the same size. To date FCDOT has not found any utility conflicts that would cause significant cost or delay to the project.
FCDOT is preparing a Categorical Exclusion (CE) level evaluation to determine the level of environmental impacts, determine the types of permits and approvals required, and undertake coordination with appropriate environmental resource agencies and permitting agencies.
This work included field studies for archaeological, historic standing structures, and other historic resources (i.e. battlefields), noise and air quality, and wetlands and waterbodies; and evaluations of socioeconomics (including Environmental Justice), Section 4 (f) and Section 6 (f), natural resources including protected species, agricultural/open space, hazardous materials, and cumulative and indirect effects. The work is being performed in accordance with Federal and State environmental regulations pursuant to the National Environmental Protection Act (NEPA). The Final CE was submitted for VDOT and FHWA review in late February and will be posted to the website upon final FHWA approval.
The evaluation includes the areas within and adjacent to the existing VDOT right-of-way that may be affected by the roadway widening; and sites that have been identified as potential storm water management (SWM) facilities.
To date, the study has found no areas of cultural or historical significance within or immediately adjacent to the existing VDOT right-of-way. Six wetlands and five Waters of the U.S. have been identified within the project corridor and candidate SWM sites. FCDOT anticipates the maximum impact on wetlands will be approximately 0.8 acres; and the maximum impact on Waters of the United States will be about 2,500 Linear feet. FCDOT anticipates any such impacts will be mitigated by the purchase of stream and wetland credits in accordance with state and federal regulations.
The 30% preliminary plans show the delineated wetlands and the potential noise wall locations. These plans are preliminary and subject to change based on final approval of the CE.
Links to Environmental Documents below:
NEPA documentation concurrence form
Wetland (WET) Classification & Waters of the US (WUS) Classification
Environmental Impact Analysis and Studies
FCDOT conducted preliminary noise analysis per VDOT Noise Policy to determine where project noise levels are projected to exceed established criteria. FCDOT is required to propose noise mitigation. Ten sound barriers were evaluated based on the criteria of feasibility and reasonableness.
Two barriers were found to meet these criteria and will undergo
further evaluation by the D-B contractor (including effectiveness, exact location, length, height) during final design:
Sound Barriers will be constructed only if a majority of the people who are directly benefitted vote in favor of the implementation.
A Geotechnical Investigation to support the Preliminary Design has been completed. The study includes a Geotechnical Design Report (GDR) consisting of soil borings and pavement cores equivalent to 50% of the requirements by the VDOT Manual of Instructions (MOI). The GDR provides boring logs for roadway pavement, retaining walls, stormwater management facilities, and large drainage pipes/culverts. The GDR also provides the existing pavement core information as well as a preliminary pavement design.
VDOT approved the final report in March 2019.
In recent years, VDOT has employed alternative delivery methods such as Design-Build (DB) to deliver projects on an accelerated schedule. Fairfax County has endorsed the use of the Design-Build method of delivery and has used it on a number of other projects. FCDOT believes that the DB method is a reasonable alternative to consider for this project. FCDOT developed concept schedules for project delivery using both the Design-Bid-Build (DBB) method and the Design-Build Method. Using DB delivery it is estimated that the project could be completed approximately 24-28 months ahead of the standard DBB method.
VDOT’s Transform 66 Outside the Beltway project will reconstruct I-66 to provide two High-Occupancy-Toll (HOT) express lanes and three general purpose lanes in each direction, between Gainesville and the Beltway. Project completion is currently scheduled for Fall 2023. Using the Design-Build method of delivery would enable the Route 28 project to be substantially complete at approximately the same time that the I-66 project improvements become operational.
While FCDOT developed traffic models and cost estimates for the 6, 7, 8, and hybrid 6-7-8 lane concepts, FCDOT assumed that the project schedules for design and construction would be similar regardless of which widening concept was selected, with only minor changes to design and construction time frames. Time frames for completion and estimated costs for utility relocation and right-of-way acquisition for each concept were also assumed to be similar for each widening concept in order to provide comparable estimates.
The Design-Build contract procurement method for this project satisfies the following needs:
FCDOT prepared estimated total project costs using VDOT’s PCES system and information developed during concept design for each design under consideration. For Design-Build project delivery, the PCES system estimates were developed and then imported into the VDOT Design-Build Cost Finance Summary Worksheet. Costs include, but are not limited to; design, construction, anticipated utility relocations, right-of-way, environmental mitigation requirements, construction engineering and inspection, and VDOT oversight. Estimates were developed for Design- Bid-Build delivery for all concept designs. Design-Build estimates were developed for the 7-lane, 8-lane and hybrid 6-7-8 lanes designs.
Estimated Project Costs - Route 28 Widening (2018 Estimate)
|Concept||Design-Bid-Build (DBB)||Design - Build (DB)|
|6-7-8 Hybrid Section||$90,500,000||$91,100,000|
Current Cost of Route 28 Widening Project is $86,748,000. Sources of funding include:
During the second round of SmartScale project selection, the amount of SmartScale funds received was $32,830,000. The initial SmartScale funding award included the repurposing of $9,407,418 in Federal Demonstration funds. These funds have an obligation deadline of September 30, 2019.
Under a Design-Bid-Build procurement schedule, FCDOT would not be able to satisfy this obligation deadline since the construction advertisement date would be approximately October 2022. However, per discussions with VDOT, the obligation deadline for these funds would be met if FCDOT utilized the Design-Build project delivery method since funds for Design-Build projects are considered to be obligated for construction once the Request for Proposals (RFP) is advertised.
A Design-Build RFP could be advertised in late Spring 2019 which will be well in advance of the September 30, 2019 obligation deadline.
FCDOT anticipates advertisement of a Design-Build RFP in the Summer of 2019.
12000 Government Center Pkwy
Fairfax, VA 22035