[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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