US-89 a Landmark Project

As UDOT's first -ever 'Progressive Design-Build', the complex $526 million reconstruction transformed US-89 into a modern highway while mitigating public concerns.
By Brad Fullmer

Hailed as the first-ever 'Progressive Design-Build' project for the Utah Department of Transportation (UDOT), the reconstruction of US-89 project in Davis County was celebrated at a ribbon cutting June 30, marking UDOT's largest completed project since I-15 CORE in Utah County in 2012. 

Beyond the usual physical challenges associated with a project of this size and scope ($526 million; $384 million construction cost), this one caused significant initial heartburn among the communities impacted by the proposed right-of-way and those living adjacent to the highway, with concern over how grade separations at interchanges would compromise views. UDOT listened and made significant adjustments to satisfy public demand. 

"This project was for the customers, the public who lives along this corridor and those who travel through it," said Rob Wight, Region One Director. "There was some difficulty early on. UDOT gets accused a lot of times for not listening, but we do listen, and we made changes to the project that made it a better project overall. That is an asset that is going to be here for a long time."

Improving public safety is always UDOT's number one goal—Zero Fatalities is forever the mantra—and the structural improvements made to US-89 spanning Main Street in Farmington to SR-193 in Layton is a major victory for all parties involved in furthering that goal.

Progressive Design-Build is considered an innovative approach that combines the strengths of the design-build and CMAR project delivery methods. Its "progressive" distinction lies in its emphasis on collaboration and teamwork, uniting project owners, the design-build team, and all stakeholders. Unlike traditional design-build projects, which often limit collaboration, Progressive Design-Build (PDB) orchestrates an environment where all parties work together, steering the project's course by jointly managing risks and capitalizing on opportunities across its lifecycle. 

Having that collaborative cohesiveness allowed the project to wrap up in just over three years, a highly ambitious schedule that impacted a significant number of residents due to right-of-way demands. 

"We looked at all of the different challenges and risks associated with the project, and we thought using the progressive design-build model limited the Department's exposure [...] and gave us the ability to work through challenges in a collaborative manner," said Mike Romero, Project Director for UDOT. "It gives us more open dialogue between the contractor and owner to figure out what the critical issues are and how we can appropriately address them. You can have open, honest dialogue right from the start."

"Typically, design-build projects are those that have the highest risks, and the most opportunities for innovation—not just with the owner, but the community," said Randy Jefferies, UDOT Program Director. "It's a great way to collaborate closely in an atmosphere of trust."  

Wight said design was at the 30% phase—around the same time the contractor got involved—when changes were implemented. 

"We were able to quickly revise that design [...] and make it more to what the community wanted," he said. "Progressive design-build gave us more flexibility in working with communities. We bring the contractor on in the design phase [...] and we can work through issues and risks before issuing a full contract. We took citizen input, the contractor put a price to it, and it was manifest in lowering the grade of the road. It didn't delay the project at all."

Before and after photos illustrate the dramatic transformation of this major transportation corridor through Davis County—from cumbersome signalized intersections to free-flowing single-point urban interchanges (SPUI). (photos courtesy UDOT)

Challenging Scope of Work

This project was a Herculean feat with myriad impressive upgrades and challenges overcome to even be able to construct this modern highway system, including:


• The removal of more than one million CY of dirt, much of which was fortuitously utilized on the nearby West Davis Corridor project.


• Navigating around and relocating a maze of complicated utility infrastructure, including coordinating with Weber Basin Water Conservancy District and the Bureau of Reclamation on the protection of a 78-in. aqueduct, along with an 8-in. Holly Oil line that carries 100,000 barrels daily, each of which ran the length of the project and had to be designed around. 


• Converting six signalized intersections into grade-separated interchanges, including four new interchanges with on- and off-ramps at 400 North in Fruit Heights and at Oak Hills Drive, Gordon Avenue, and Antelope Drive in Layton.


• Widening the highway to three lanes in both directions.


• The removal and replacement of nine miles of asphalt pavement in each direction.


• The creation of a new frontage road system parallel to the highway, improving access to local
neighborhoods and making safer cycling routes.


• Construction of eight new bridges; six crossing the highway at the four interchanges and
at Nicholls Road in Fruit Heights and Crestwood Road in Kaysville, a bridge over the Weber River, and a utility bridge carrying irrigation pipe for Holmes Creek. Bridges ranged in size from 146 ft. to 161 ft. over the highway, with the Weber River bridge the longest at 188 ft. 


• The installation of large noise walls 12 ft. to 22 ft. tall and tied into a well-fortified system of soil nail walls.


• Addition of a new right-turn lane from eastbound I-84 to southbound US-89 that allows
drivers to continue through the intersection without stopping, and the extension of the on-ramp entrance for drivers traveling on northbound US-89 to eastbound I-84.


• Gordon Avenue was extended to create a new east-west connection from I-15 to US-89 and
accommodate Layton City's plans for a future town center.


• Installation of three new pedestrian tunnels to enable future city and county trail expansions,
along with a new multi-use trail to connect the South Weber frontage road to Valley View
Drive.


• Other major elements included pedestrian structure bridges, traffic signals, lighting, ATMS, MOT, and storm drainage.

Built by Oak Hills Constructors—a 60/40 joint venture of Granite Construction of North Salt Lake and Ralph L. Wadsworth Construction of Draper—and designed by Horrocks Engineers of Pleasant Grove (Prime) and Michael Baker International of Midvale, much of the success of US-89 was a design that called for the highway to run under the six bridges (grade separations), which actually shaved time off the schedule and reduced project cost. 


"It was the right decision," said Brian Atkinson, Principal and Design Manager for Pleasant Grove-based Horrocks Engineers. "I love how it fits the terrain. Overall, it was just a better solution. I don't think we would have gotten there if it wasn't in this collaborative environment." 


Excavating down to 28 ft. deep in some sections like the Nicholls Road and Crestwood Road bridges was a sizeable task, said Romero. "One of the biggest concerns residents had was how [grade separations] would impact the community. We evaluated different profiles and took them under cross streets."


The right-of-way acquisition underwent notable positive transformations, according to Horrocks. Typically, additional land is procured to ensure project security, which can yield favorable results. However, capitalizing on the increased collaboration of the progressive design-build approach, the team was able to acquire just the right amount of land, minimizing unnecessary impacts on the landowners. The process was executed seamlessly, leaving a positive imprint on both the project, and the affected residents. 


Rance Pickering, Project Manager for Granite Construction, added that the design of the project was ingenious in that it provided benefits to the local community and traveling public midway through the project, allowing traffic flow to run in two lanes in each direction. 


"Traffic was flowing at a higher speed and safer through the corridor, offering benefits to the public a year and a half in," he said. "Progressive design-build allowed us ultimately to give the client the project they wanted."


"This project had some huge challenges. It's an environmentally sensitive area," added Scott Wiscombe, Construction Manager for Granite. "There were a lot of challenges just in how it was going to be built. The right thing to do was go PDB."

Pickering also praised the JV contractor team for working well together and having the project fully opened by the end of June. 


"When we set this contract in February 2020, as soon as we started Covid hit, we had floods, [inclement] weather, an earthquake—there was a lot stacked up against us," said Pickering. "It would have been easy to say 'Hey, we need more time', but we were able to work through [challenges]—it's who we are. We hit that date, and I'm proud of that." 


Wight said UDOT's second PDB project is underway, with the JV team of Granite Construction and W.W. Clyde of Orem reconstructing 5600 South/I-15 in Roy, a $330 million contract that will run through 2026. 


"I think (PDB) is specific to complicated jobs," said Wight, mentioning community input, a challenging engineering scope, significant third-party owners, complicated utilities and other unknown concerns as factors that can be mitigated by the delivery method. "This is a great tool in the toolbox to identify challenges up front." 



" I think there is a lot of opportunity out there," added Romero. "(PDB) is not a silver bullet, not the right fit for all projects, but I think it's a great opportunity for the department to minimize risk, as well as the contractor."


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US-89 

Location: Farmington, Fruit Heights, Layton, South Weber

Cost: $400 Million

Delivery Method: Progressive Design Build

Length (miles): 9

Surface type: Asphalt

No. of Bridges: 8


Project Team

Owner: UDOT

Owner’s Rep: Michael Romero

Design Team

Civil: Horrocks, Michael Baker, HDR

Structural: Horrocks, Michael Baker

Other Consultants: Gerhart Cole, Terracon (Geotechnical) Bowen Collins and Associates (WVWCD/BOR Relocations)

Construction Team

GC: Oak Hills Constructors (Granite Construction/Ralph L. Wadsworth Joint Venture)

Concrete: Oak Hills Constructors, 

Asphalt Paving: Granite Construction

Rebar: CMC

Excavating: Oak Hills Constructors

Utilities: BHI; Whitaker Construction

Drainage: Brinkerhoff

CIP Barrier: Comers Concrete

Signs/Electrical/ATMS: Cache Valley Electric

Post and Panel Walls: Harper Concrete 



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By Bradley Fullmer It's been a whirlwind 18 months for Adam Del Toro and Nick Pexton, who co-founded Fountain Green-based Reliance Engineering Services in May 2024, a company specializing in full-service telecommunications engineering, including design, project management, permitting, and funding and grant applications. Two years ago, Del Toro was more than a decade into his career as a Research & Development Supervisor for natural gas giant Dominion Energy, while Pexton was working for Nephi-based Rocky Mountain West Telcom (RMWT) as a Sr. Director of Business Development, with just over four years at the company. The two had met a couple of years earlier while collaborating on a potential fiber optic network project in Mona that never happened. Neither was particularly content with their respective positions, so when Del Toro got a random call from Pexton in March 2024, the timing could not have been better. "I was planning on leaving the natural gas industry and start my own firm [...] Nick happened to call the day I was putting in my two weeks [at Dominion],” said Del Toro, 39. "It definitely felt like Providence was helping us." "Somebody was looking after us, because the timing was unbelievable," added Pexton, 35. "It's crazy how things lined up." Del Toro is a native of St. George and earned a Bachelor of Mechanical Engineering from Utah State University in 2011. After 2.5 years as a USU Graduate Research Assistant, he joined Dominion Energy in January 2013, where he designed major natural gas systems and structures. Del Toro also earned a Master of Clinical Mental Health Counseling from the University of the Cumberlands (Williamsburg, Kentucky) in 2023, and moonlights as a counselor at The Center for Hope in Springville, where he helps clients address life challenges both personally and professionally. Pexton is a native of Nephi and studied at Utah Valley University from 2008 to 2010, and earned the Certified Telecommunications Network Specialist designation from Teracom Training Institute (2013-2014). Pexton joined Nephi-based Mid-State Consultants, a telecommunications engineering firm, in March 2011 and spent more than nine years there. He joined RMWT in June 2020, gaining experience in project management and operations. After that fortuitous phone call from Pexton to Del Toro, the pair met four times from March to May to "make sure we were aligned on what the company would look like," Pexton said. "It was a pretty quick process," added Del Toro. "We got talking about goals, how to build a general company vision. I trusted Nick's background and experience, and his character, as well. It was a big risk, but I'm a sink-or-swim guy. If those are my options, I'm going to swim!" Since teaming up, the pair have been aggressive regarding company growth, having exploded from just the two of them to 30 employees, with revenues expected to more than quintuple from $560,000 in 2024 to nearly $3 million by the end of this year. Both expect the telecommunication market to be a fruitful, busy market given the need for fiber optics to rural America, in addition to the "Internet for All" initiative in May 2022 that was part of the National Telecommunications and Information Administration's (NTIA) implementation of the infrastructure law that allocated $65 billion to improve high-speed Internet access. Utah, specifically, received $330 million, with the goal of reaching some 40,000 unserved homes and businesses. The firm's location in Sanpete County puts them in the center of the state geographically, and they're committed to working with communities of all sizes to improve their internet capacity. In addition to Utah, Reliance is working in Michigan and Oklahoma, and Del Toro and Pexton expect to land significant future work throughout the Midwest. They want to grow intentionally while ensuring a diversity of revenue streams. "We set some early goals, and we've been able to do really well—we're on track to beat our goals," said Del Toro, crediting the many employees who have joined the firm. "Those individuals took great risks coming on board. We anticipate we'll be even larger next year with the work coming down the pipeline." "Our outlook has been wise," said Pexton. "We've taken into consideration diversification into other sectors—that's a key element. Adam has experience in the natural gas industry, and we want to further our diversification and get into the power side of the industry." Major clients include the federal government (USDA), utility companies, and municipalities, with a focus on rural communities. "We love Sanpete County," said Del Toro. "We value helping the communities we live and work in and providing services that help build up the community and hopefully help the residents." "We depend on repeat work from 18 major clients, and continuously getting work from them," said Pexton. "The minute we stop doing a good job, they can go someplace else. As long as we do a good job, we'll keep getting work." The pair expect Reliance to maintain its explosive growth, perhaps even doubling its employee total in another 12 months. "Next year's [revenue] goal is $4.8 million," said Pexton. "We have confidence in what our workload will be like. We are scaling quite dramatically and want to grow at a healthy pace, where we're not stringing ourselves out too thin. We're in a good position right now."