[Federal Register Volume 60, Number 9 (Friday, January 13, 1995)]
[Notices]
[Pages 3295-3298]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-889]
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DEPARTMENT OF TRANSPORTATION
Federal Highway Administration
[FHWA Docket No. 95-3]
Bicycle and Pedestrian Planning at the State and Metropolitan
Planning Organization Levels; Interim Technical Guidance
AGENCY: Federal Highway Administration (FHWA), DOT.
ACTION: Notice; request for comments.
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SUMMARY: This notice publishes the text of a joint FHWA and Federal
Transit Administration (FTA) document entitled ``Interim Technical
Guidance for Bicycle and Pedestrian Planning at the State and
Metropolitan Planning Organization (MPO) Levels under the Intermodal
Surface Transportation Efficiency Act (ISTEA).'' A memorandum issuing
this Guidance was released on November 28, 1994. The Guidance provides
legislative and regulatory background to explain the requirements for
Bicycle and Pedestrian Planning, and provides guidance on components of
bicycle and pedestrian transportation plans. By publishing this notice,
the FHWA and the FTA seek to inform the public and ensure the widest
possible dissemination of this information. The FHWA and FTA also will
accept comments from all interested people. After review of all
comments received, a final version of this guidance will be issued.
Until that time, this interim version shall be used.
DATES: This interim technical guidance became effective November 28,
1994. Comments must be submitted on or before March 14, 1995.
ADDRESSES: Submit written, signed comments to FHWA Docket No. 95-3,
Federal Highway Administration, Room 4232, HCC-10, Office of the Chief
Counsel, 400 Seventh Street, SW., Washington D.C. 20590. All comments
received will be available for examination at the above address between
8:30 a.m. and 3:30 p.m., e.t., Monday through Friday, except on Federal
holidays.
FOR FURTHER INFORMATION CONTACT: Mr. John C. Fegan, Bicycle and
Pedestrian Program Manager, (202) 366-5007, or Mr. Reid Alsop,
Environmental and Right-of-Way Law Branch, (202) 366-1371, Federal
Highway Administration, 400 Seventh Street, SW., Washington D.C. 20590;
or Mr. Sean Libberton, Community Planner, (202) 366-0055, or Mr. Scott
A. Biehl, Assistant Chief Counsel, (202) 366-0952, Federal Transit
Administration, 400 Seventh Street, SW., Washington D.C. 20590.
SUPPLEMENTARY INFORMATION:
Background
The ISTEA, Pub. L. 102-240, 105 Stat. 1914, expanded the
eligibility of bicycle and pedestrian projects for Federal
transportation funding, and required the inclusion of bicycle and
pedestrian components in transportation planning documents. The FHWA
and FTA developed this interim technical guidance to ensure that States
and MPOs could implement bicycle and pedestrian plans effectively. The
text of the guidance is set forth below:
[Memorandum]
Action: Distribution of Interim Technical Guidance for Bicycle and
Pedestrian Planning at the State and MPO Levels
From: Acting Associate Administrator for Program Development, FHWA,
Associate Administrator for Grants Management, FTA
To: Regional Highway Administrators, Regional Transit Administrators,
Federal Lands Highway Program Administrator, Director, Joint ITS
Program Office
Attached are copies of the FTA/FHWA interim technical guidance for
conducting planning for bicyclists and pedestrians at the State and MPO
levels as called for by ISTEA. Specifically, at both the MPO and State
levels, transportation plans and programs are required to ``provide for
the development of transportation facilities (including pedestrian
walkways and bicycle transportation facilities) which will function as
an intermodal transportation system.'' Final regulations issued by FHWA
and FTA on October 28, 1993 [58 FR 58040], contain specific references
to the inclusion of bicycle and pedestrian planning in overall State or
MPO planning.
The purpose of this interim technical guidance is to offer guidance
to State and MPO officials responsible for conducting bicycle and
pedestrian planning. In addition, this guidance outlines the items that
should be included in the bicycle and pedestrian components of State
and MPO transportation plans.
In addition to this guidance, a 1-day training course, ``Bicycle
and Pedestrian Planning Under ISTEA,'' is being offered by FHWA through
the National Highway Institute (NHI). The course presents the
requirements for this planning, and the recommended items to be
included in the bicycle and pedestrian part of the State and
metropolitan level transportation plans and the transportation
improvement programs. The course also explains how this planning can be
accomplished and the role of public involvement in the process. The NHI
course number is 15135. The NHI contact is Harry Hersey who can be
reached at (703) 285-2778. This course has been presented in nine
sessions across the country. Additional presentations of the course are
available upon request to NHI.
This interim technical guidance will be published in the Federal
Register to obtain comments from all interested persons. After review
of all comments received, a final version will be issued. Until that
time, this interim version shall be used.
Please distribute the attached copies of this technical guidance to
FHWA Division offices, to transit providers, and to State and MPO
personnel responsible for conducting the bicycle and pedestrian
planning for the statewide and MPO transportation plans, and let them
know of the availability of the NHI course. Questions on the Interim
Guidance should be directed to John Fegan (FHWA, HEP-50, on (202) 366-
5007) or to Sean Libberton (FTA, TGM-21, on (202) 366-0055).
(Original signed by)
Robert H. McManus (Federal Transit Administration)
William A. Weseman (Federal Highway Administration)
[Technical Guidance]
FHWA/FTA Interim Technical Guidance for Bicycle and Pedestrian
Planning at the State and MPO Levels under the Intermodal Surface
Transportation Efficiency Act (ISTEA).
This Interim Guidance covers planning for bicycle transportation
facilities and pedestrian walkways regardless of facility type ranging
from on-road treatments to separate off-road facilities. A one day
training course, ``Bicycle and Pedestrian Planning Under ISTEA,''
(course number 15135) is available to expand upon this guidance upon
request to FHWA's National Highway Institute. [[Page 3296]]
Bicycle and Pedestrian Transportation Planning
Introduction: Sections 1024 and 1025 of the Intermodal Surface
Transportation Efficiency Act of 1991 (ISTEA) require that States and
Metropolitan Planning Organizations (MPOs) develop transportation plans
and Transportation Improvement Programs (TIPs) which consider and
include, as appropriate, bicycle and pedestrian projects and programs.
These plans and TIPs will be used to define transportation projects and
programs for Federal transportation funding at State and metropolitan
levels.
Purpose: This document offers technical guidance on meeting the
requirements for consideration and appropriate inclusion of bicycle and
pedestrian elements in Statewide and MPO transportation plans and TIPs.
Federal Transportation Policy: It is Federal transportation policy
to promote the increased use and safety of bicycling and walking as
transportation modes.
Specific Legislative Requirements: Specifically, Section 1024 of
the ISTEA, ``Metropolitan Planning,'' amends Section 134 of Title 23,
United States Code (U.S.C.) as follows:
``* * * metropolitan planning organizations, in cooperation with
the State, shall develop transportation plans and programs for
urbanized areas of the State. Such plans and programs shall provide for
the development of transportation facilities (including pedestrian
walkways and bicycle transportation facilities) which will function as
an intermodal transportation system for the State, the metropolitan
areas, and the Nation.''
Similarly, Section 1025 of the ISTEA, ``Statewide Planning,''
amends Section 135 of Title 23 U.S.C. as follows:
``Subject to section 134 of this title, the State shall develop
transportation plans and programs for all areas of the State. Such
plans and programs shall provide for the development of transportation
facilities (including pedestrian walkways and bicycle transportation
facilities) which will function as an intermodal State transportation
system.''
In addition, in Section 1025 of the ISTEA, 23 U.S.C. 135 is amended
to read:
``Each State shall undertake a continuous transportation planning
process which shall, at a minimum, consider the following:
(3) Strategies for incorporating bicycle transportation facilities
and pedestrian walkways in projects where appropriate throughout the
State.''
Final regulations implementing the State and MPO requirements for
transportation plans and programs were published in the Federal
Register on October 28, 1993, by the Federal Highway Administration
(FHWA) and the Federal Transit Administration (FTA) as 23 CFR Part 450.
23 CFR 450.214, ``Statewide transportation plan,'' states that the
Statewide transportation plan shall:
``(3) Contain, as an element, a plan for bicycle transportation,
pedestrian walkways and trails which is appropriately interconnected
with other modes;''
23 CFR 450.216, ``Statewide transportation improvement program
(STIP),'' states:
``In addition the STIP shall: (6) Contain all capital and non-
capital transportation projects (including transportation enhancements,
Federal lands highway projects, trails projects, pedestrian walkways,
and bicycle transportation facilities), or identified phases of
transportation projects * * *''
23 CFR 450.322, ``Metropolitan transportation planning process:
Transportation plan,'' states:
``In addition the plan shall: (2) Identify adopted congestion
management strategies including, as appropriate, traffic operations,
ridesharing, pedestrian and bicycle facilities * * * and (3) Identify
pedestrian walkway and bicycle transportation facilities in accordance
with 23 U.S.C. 217 (g).''
23 CFR 450.324, ``Transportation Improvement Program: General,''
states:
``(f) The TIP shall include: (1) All transportation projects, or
identified phases of a project, (including pedestrian walkways, bicycle
transportation facilities and transportation enhancement projects)
within the metropolitan area proposed for funding under title 23,
U.S.C., * * *''
Note: These items are presented as specific references to
bicycling and walking in the metropolitan and statewide planning
requirements of the ISTEA. All other provisions of the ISTEA and the
final regulations issued on October 28, 1993, by the FHWA and the
FTA also apply as appropriate to the bicycle and pedestrian elements
of State and MPO plans and TIPs.
Deadlines: The final regulations published in the Federal Register
on October 28, 1993, by the FHWA and the FTA require that the statewide
transportation plans must be completed by January 1, 1995. The MPO
Plans for nonattainment areas requiring Transportation Control Measures
were due on October 1, 1994, and all other metropolitan areas shall
comply by December 18, 1994.
Scope: The inclusion of the bicycle and pedestrian elements in
transportation plans and programs may be accomplished by addressing
bicycle and pedestrian issues throughout the transportation planning
process and integrating bicycle and pedestrian elements as appropriate
in the transportation plan and programs. A separate section on bicycle
and pedestrian specific issues in addition to or in place of an
integrated element may be appropriate. This approach would address the
ISTEA mandate of developing transportation facilities that will
function as an intermodal transportation system.
The bicycle and pedestrian plan elements should contain policy
statements and goals as well as, whenever possible, the inclusion of
specific projects and programs. The plan and the TIP should identify
the financial resources necessary to implement the bicycle and
pedestrian projects and programs.
Bicycle and pedestrian projects may be on- or off-road facilities.
For off-road trails, all such facilities that serve a transportation
function must be consistent with the planning process.
A trail serves a valid transportation purpose if it serves as a
connection between origins and destinations. Trails funded through
programs requiring FHWA or FTA approval, except for the National
Recreational Trails Fund Act (NRTFA), are determined to serve primarily
a transportation purpose. These must be included in statewide and MPO
plans.
For Statewide Transportation Improvement Programs (STIPs), if a
bicycle or pedestrian project is determined to be regionally
significant (as defined in the Planning Rule) and is funded by or
requires an action by the FHWA or the FTA, it must be included. If it
is funded using other Federal or non-Federal funding, it should be
included for informational purposes. Projects can be grouped in STIPs.
For Metropolitan Transportation Improvement Programs (TIPs), if a
bicycle or pedestrian project is determined to be regionally
significant (as defined in the Planning Rule) and is funded by or
requires approval of the FHWA or the FTA, it must be included. In air
quality nonattainment or maintenance areas, if it is funded using other
Federal or non-Federal funding, it shall be included for informational
purposes. Projects can be grouped in TIPs.
A trail serving a recreational purpose with no transportation
function is a recreational trail. For example, a closed loop trail
within a park or recreation [[Page 3297]] area would be a recreational
trail. Similarly, a linear facility serving only recreational users
would be a recreational trail. Any trails funded through the National
Recreational Trails Fund Act (NRTFA) are determined to be primarily
recreational in nature and are intended to enhance the recreational
opportunity and resources of the park or recreation area. The NRTFA
planning requirements are met in each State's Statewide Comprehensive
Outdoor Recreation Plan (SCORP). Except as noted below, projects funded
under the NRTFA are not required to be on statewide or metropolitan
plans or TIPs. However, their inclusion is recommended.
It is essential to coordinate the statewide and metropolitan
transportation plans with the SCORP document with regards to trail
policies and plans. Also, it is essential to coordinate recreational
trail projects with the STIPs and TIPs. This coordination will help
protect the continuity of existing and proposed trail and greenway
corridors.
Bicycle and Pedestrian Considerations in a Transportation Planning
Process
The bicycle and pedestrian element of transportation plans should
include:
1. Vision and Goal Statements, and Performance Criteria: The vision
statements express concisely what the plan is expected to accomplish.
For example:
The vision of this program is a nation of travellers with new
opportunities to walk or ride a bicycle as part of their everyday life.
The vision of this program is the creation of a changed transportation
system that offers not only choices among travel modes for specific
trips, but more importantly presents these options in a way that they
are real choices that meet the needs of individuals and society as a
whole.
The goals to reach the vision, and the time frame for reaching each
goal should be spelled out. They should be clear and objectively
measurable. For example, some goals would be:
To double the percentage of trips taken by bicycling and walking
for all transportation purposes, and to reduce by 10 percent the number
of bicyclist injuries and fatalities by the year 2000.
To increase the number of bicyclists and pedestrians or to increase
facility mileage by a certain amount by a given year.
To improve the connections among bicycle, pedestrian, and transit
systems.
To allow people to bicycle safely, conveniently, and pleasurably
within five miles of their homes, and to make streets and roads
``bicycle friendly'' and well-designed to accommodate both motorized
and nonmotorized modes of transportation.
Network performance criteria also should be developed. Some
applicable criteria would be accessibility, directness, continuity,
route attractiveness, low numbers of conflicts with other route users,
number of bicycle links with transit, cost, ease of implementation,
etc.
Specific State and MPO goals and performance criteria should be
developed to support locally determined bicycle and pedestrian program
implementation efforts.
2. Assessment of Current Conditions and Needs: A baseline of
information should be collected on which to base strategies and actions
necessary to reach the vision and goal statements. The information
collected in this step should determine the extent to which the
existing transportation system meets the needs of bicyclists and
pedestrians. The Intermodal Management System should provide
information on existing and needed bicycle and pedestrian access to
major intermodal transportation terminals such as commuter rail
stations. Specifically, this assessment could include:
Determination of current levels of use for bicycling and walking
transportation trips, and current numbers of injuries and fatalities
involving bicyclists and pedestrians.
Evaluation of the existing transportation infrastructure (including
on- and off-road facilities) to determine current conditions and
capacities and to identify gaps or deficiencies in terms of
accommodating potential and existing bicycle and pedestrian travel.
Determination of the capacities and the type and security level of
bicycle parking offered at intermodal connections such as transit
facilities and destination points.
Identification of desired travel corridors for bicycle and
pedestrian trips.
Examination of existing land use and zoning, and the patterns of
land use in the community.
Planning, design standards, and agency policies and the extent to
which they affect the accessibility of the transportation system for
bicyclists and pedestrians, e.g., do they meet policies and design
guidance issued by the American Association of State Highway and
Transportation Officials (AASHTO) for bicycle and pedestrian
facilities?
State and local laws and regulations affecting the vision and
goals, e.g., growth management and trip reduction laws, or
constitutional restraints on expending highway funds on bicycle and
pedestrian facilities.
Availability of bike-on-bus or bike-on-rail access; including hours
service is available, routes where available, and incentives and
barriers to using the service (i.e., training, permit, or additional
charges required).
3. Identification of activities required to meet the vision and
goals developed above. These activities or strategies could include:
Basis of the need for modifications to the transportation system
through surveys, origin destination studies, public input, or other
data collection techniques.
Needed modifications to the existing transportation system of on-
and off-road facilities to meet the vision and goal statements.
Development and application of criteria to prioritize and to
identify specific facility-related improvements.
Identification of changes required to planning, design standards,
and agency policies.
Specification of education, encouragement, and law enforcement
components to support facility development.
Identification of nonconstruction activities such as mapping,
parking facilities, etc., that are needed to reach the vision and goals
developed above.
Investigation of the effects on bicyclist and pedestrian safety.
The relationship of statewide, MPO, and local plans for bicyclists
and pedestrians, i.e., ensuring that such plans are coordinated among
the involved jurisdictions.
The consideration, as appropriate, of the 23 statewide
transportation planning factors and the 15 metropolitan planning
process factors in the development of bicycle and pedestrian projects
and programs.
The inclusion of recreational bicycling and walking facilities such
as recreational trails is encouraged, but not required. Nevertheless,
the coordination of transportation and recreational bicycle and
pedestrian facilities and programs is essential.
Provide a mechanism for evaluating the performance of the
transportation system containing implemented projects against the
performance of the original system.
4. Implementation of the bicycle and pedestrian elements in the
statewide and MPO transportation plans and transportation improvement
programs:
Inclusion in the Plans: The bicycle and pedestrian elements as a
set of policy statements and/or a list of projects will be included in
statewide and metropolitan transportation plans [[Page 3298]] and will
be updated appropriately as statewide and MPO plans are updated.
Inclusion in the TIPs: The bicycle and pedestrian element of the
transportation plan should be implemented by including identified
projects in the TIP in accordance with priorities established by MPO's,
States, and transit operators, and in accordance with 23 CFR Part 450,
sections 216 and 324.
5. Evaluation of progress: Using the performance measures developed
previously, regularly determine progress in reaching the identified
vision and goals. Appropriate changes to either the vision and goals or
to the strategies and proposed projects should be made.
6. Public Involvement: As required by the ISTEA and the FHWA/FTA
joint planning regulations published on October 28, 1993, public
involvement is essential in the development of transportation plans and
programs including the bicycle and pedestrian components. Public
involvement should include, to the extent possible, input from
individuals who will be affected by the transportation plan and
programs. This involvement must meet the requirements for statewide
planning spelled out in the regulations in 23 CFR 450.212, and those
for MPO planning spelled out in 23 CFR 450.316(b). Any subsequent
policy statements and guidance provided by the FHWA and FTA also needs
to be considered.
The regulations require that State departments of transportation
and MPO's have public involvement processes which are followed in
preparing transportation plans and programs. Bicycle and pedestrian
groups should be aware of the opportunity to participate in the
development of these public involvement processes and to comment on
them before they are adopted. This is in addition to the opportunity to
participate according to the public involvement processes in the
development of transportation plans and programs. Public involvement
will occur at key decision points as described in the public
involvement procedures for the planning process.
7. Transportation Conformity Requirements for Air Quality: Per 40
CFR Parts 51 and 93, bicycle and pedestrian facilities are exempt from
transportation conformity requirements. Their inclusion as part of a
larger project that does not meet the conformity requirements could
result in delay while the requirements for the larger project are
satisfied.
Trails funded through the National Recreational Trails Fund Act
(NRTFA) that may have an air quality impact in air quality
nonattainment areas must be analyzed to determine if they conform with
the State Implementation Plan (SIP). Such projects must be included in
the transportation plan and TIP. To be eligible for Federal funding or
approval, such projects must come from a conforming plan and TIP and
may not cause or contribute to a new or existing violation of the air
quality standards. In air quality nonattainment areas only projects
from a conforming TIP shall be included on the STIP. The following
kinds of projects are determined to have no significant air quality
impact: Projects funded under the following paragraphs of Section
1302(e)(1) of the ISTEA: (A), (B), and (E); (F) except for facilities
that may cause air quality impacts such as parking facilities; and (C),
(D), and (G-K) for nonmotorized trails.
The following kinds of projects must be analyzed for air quality
impact: All motorized recreational trail projects in nonattainment
areas; and provision of parking facilities.
Authority: 23 U.S.C. 315; Sec. 1024, 1025, 1033, 1302 of Pub. L.
102-240, 105 Stat. 1914, 1955, 1962, 1975, 2064; 49 CFR 1.48.
Issued on: January 6, 1995.
Rodney E. Slater
Federal Highway Administrator.
[FR Doc. 95-889 Filed 1-12-95; 8:45 am]
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