Bicycle and Pedestrian Planning at the State and Metropolitan Planning Organization Levels; Interim Technical Guidance

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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