Clack-A-Mole: How Clackamas Water Environment Services Succeeded in Building the Tri-City Water Resource Recovery Facility Outfall Project

Event Overview

The September Oregon City Business Alliance forum featured Clackamas Water Environment Services’ (WES) ambitious $58.4 million Tri-City Water Resource Recovery Facility Outfall Project. Designed to serve the community through 2080, the project addressed aging infrastructure and future growth demands while navigating permitting, environmental protections, and community trust.

Capital Program Manager Jeff Stallard presented a detailed, story-driven account of the seven-year journey, highlighting collaboration, innovation, and resilience. The forum underscored not only the engineering achievements but also the importance of partnerships with agencies, tribes, and the community.

Speaker

Jeff Stallard, P.E.
Capital Program Manager, Clackamas Water Environment Services

• 24 years of experience in water and wastewater projects
• Former consulting engineer; joined WES in 2017
• Oversees major capital projects including treatment plants and collection systems
• University of Cincinnati graduate; Pacific Northwest resident for 15 years

Key Takeaways

1. Infrastructure for the Future – The outfall project ensures treatment capacity through 2080, shifting growth from Milwaukee’s land-constrained Kellogg facility to Oregon City’s Tri-City plant.
2. Progressive Design-Build Delivery – By bringing contractors in early, WES reduced risk, improved collaboration, and delivered within budget.
3. Resilient Public Engagement – Despite COVID-19, WES pivoted to virtual outreach, held 30+ presentations, and secured 73% voter approval for tunneling under John Storm Park.
4. Cultural & Environmental Sensitivity – Early and ongoing consultation with the Confederated Tribes of Grand Ronde, along with innovative approaches like canine cadaver dogs, safeguarded cultural resources.
5. Collaboration is Key – Partnerships with Oregon City, ODOT, and community stakeholders helped balance construction disruptions, protect sensitive waterways, and coordinate major projects.
6. Celebrate Along the Way – From public naming of the “Clack-A-Mole” tunnel boring machine to community tours, WES emphasized joy and transparency in project milestones.

Despite risks, the project held steady at its $58.4 million budget—an exceptionally low 1.6% change rate.

Key Topics & Speaker Highlights

• Vision & Mission: WES protects public health by delivering clean water, renewable resources, and long-term planning for 200,000+ residents.
• Project Origins: The need stemmed from Kellogg’s limited capacity, requiring Tri-City to handle all regional growth through 2080.
• Routing & Ballot Measure): A public vote was required for tunneling under John Storm Park. Strong outreach and trust-building led to overwhelming voter approval in 2020.
• Progressive Design-Build: Chosen for risk management, enabling a collaborative approach between WES, contractor Michels Trenchless, and AECOM engineers.
• Risk Management: WES created a detailed “risk register,” tackling everything from archaeological finds to tunneling hazards, and maintained cost stability despite setbacks.
• Tribal Engagement: The Confederated Tribes of Grand Ronde played a key role, with innovative review methods to protect culturally sensitive areas.
• Engineering Challenges: The “Clack-A-Mole” machine overcame difficult soil conditions, a stuck drill head, and a sinkhole at Jon Storm Park—ultimately succeeding in tunneling beneath the Willamette River.
• Community Collaboration: Close coordination with ODOT’s Abernethy Bridge project and local residents minimized disruption and ensured safety.
• Financial Stewardship: Despite risks, the project held steady at its $58.4 million budget—an exceptionally low 1.6% change rate.

Expanded Q&A

• Drawbacks of Progressive Design-Build?
  Stallard noted that clear change-management language is critical. Contractor personnel changes mid-project were also challenging.
• Projected Flow?
  Current dry-weather flow: 14 million gallons/day; peak wet-weather events: up to 70 million gallons/day.
• Planning for 2080?
  WES uses zoning forecasts and growth projections from PSU to anticipate long-term capacity needs.
• Population Growth?
  Most growth is expected in Happy Valley, supported by future pipeline extensions.
• Diffuser Design?
  Eighteen 18-inch risers with tide-flex valves create broad underwater mixing, protecting aquatic life and water quality.

Conclusion

The Tri-City Outfall Project is more than an engineering feat—it is a model of collaboration, adaptability, and foresight. By engaging voters, tribes, agencies, and neighbors, WES delivered a complex project under budget and on schedule. The new outfall will safeguard the Willamette River and regional growth for decades to come.

Bonus: Project Management Lessons from this Forum

As William Gifford pointed out, The Tri-City Outfall Project was not only an engineering challenge but also a masterclass in project management. Stallard’s seven-year leadership highlighted several principles applicable across industries:

1. Relationships Drive Success
   Building trust with cities, agencies, tribes, and neighbors allowed WES to navigate permits, unexpected discoveries, and construction setbacks. Stallard emphasized that projects succeed when partnerships are treated as collaborative rather than adversarial.
2. Adaptability is Essential
   From shifting outreach strategies during COVID-19 to revising tunnel routes after new soil findings, Stallard stressed the importance of being willing to adjust expectations and methods as conditions change.
3. Manage Risk Proactively
   The creation of a comprehensive “risk register” ensured that potential issues – from archaeological finds to sinkholes – were anticipated, monitored, and budgeted for. This disciplined risk management kept the project on track and within budget.
4. Celebrate Milestones
   Recognizing achievements, such as naming the “Clack-A-Mole” tunnel boring machine or hosting groundbreaking events, boosted morale and maintained public enthusiasm. Stallard encouraged leaders to pause and celebrate progress, not just outcomes.
5. Clear Communication Matters
   Whether explaining technical details to the public, collaborating with ODOT, or working with contractors, Stallard demonstrated that consistent, transparent communication is the foundation of effective leadership.
6. Financial Discipline Yields Results
   Despite major hurdles, the project closed with only a 1.6% cost variance—an exceptional achievement for public works. This reflected deliberate planning, strong contracts, and close oversight.