Fhwahep 19006
Fhwahep 19006
Fhwahep 19006
ACCELERATING MULTIMODAL
PROJECT DELIVERY
OCTOBER
2018
Credit
www.pedbike FHWA-HEP-19-006
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/ Nathan Roseberry (CDOT) / Seattle DOT
TECHNICAL REPORT DOCUMENTATION PAGE
1. Report No. 2. Government Accession No. 3. Recipient’s Catalog No.
FHWA-HEP-19-006
4. Title and Subtitle 5. Report Date
N/A
7. Author(s) 8. Performing Organization
Report No.
Mary Taylor Raulerson (KAI), Amanda Leahy (KAI), Conor
Semler (KAI), Susan Mah (KAI), Dan Gelinne (HSRC), Kristen N/A
Brookshire (HSRC), Wes Kumfer (HSRC), Oana Leahu-Aluas
(Cadmus), Mark Stout (Mark L. Stout Consulting), and Brian Smith
9. Performing Organization Name and Address 10. Work Unit No. (TRAIS)
16. Abstract
Transportation agencies face growing demand for an integrated transportation network
that safely and efficiently move people. Motorists, freight, transit passengers, bicyclists, and
pedestrians, including individuals with disabilities, have unique needs, and infrastructure
is being adapted to the multimodal nature of travel. The project development process
for multimodal projects – those intended to serve bicyclists and pedestrians – can
experience delays and challenges as projects move from one phase to the next.
This Workbook is intended to help transportation agencies and practitioners identify
top strategies for accelerating multimodal infrastructure delivery. This Workbook
describes thirteen (13) key strategies that have been used effectively to accelerate
multimodal projects and provides examples and case studies for each.
17. Key Words 18. Distribution Statement
I. EXECUTIVE SUMMARY 1
II. BACKGROUND AND PURPOSE OF THE
WORKBOOK 2
III. KEY CHALLENGES 5
IV. TOP STRATEGIES FOR ACCELERATING
MULTIMODAL PROJECT DELIVERY 6
PLANNING AND PROJECT SCOPING AND
SELECTION 7
ENVIRONMENTAL REVIEW 19
FUNDING 27
The contents of this report reflect the views of the authors, who are
responsible for the facts and accuracy of the data presented herein.
STAKEHOLDERS/PRACTITIONERS
Erin Aleman | Illinois Department
of Transportation
Credit: www.pedbikeimages.org
/ SDOT v
I. Executive Summary
Transportation agencies across the United Practitioners working for State Departments
States face growing demand for an integrated of Transportation, local public agencies,
transportation network that safely and regional agencies, and others provided input
efficiently move people. Motorists, freight, on the challenges that they typically face when
transit passengers, bicyclists, and pedestrians, implementing multimodal projects. Common
including individuals with disabilities, have challenges addressed in this Workbook include:
unique needs, and infrastructure is being
adapted to the multimodal nature of travel. • Programming Delays and Funding Source
The project development process for Challenges;
multimodal projects – those intended to serve
• Difficulties Competing for Limited Funding;
bicyclists and pedestrians – can experience
delays and challenges as projects move from • Inadequate Internal and External Coordination;
one phase to the next. This Workbook is
intended to help transportation agencies and • Inadequate Community Input;
practitioners to identify top strategies for
accelerating multimodal project delivery. • Design Guidelines Insensitive to Context;
• Environmental Review;
• Design; and
• Funding.
Credit:
www.pedbike
images.org
/ Krista Credit: www.pedbikeimages.org
1 Nordback / Lara Justine
II. Background and Purpose
of the Workbook
Transportation agencies across the United
States face growing demand for transportation HOW TO USE THIS WORKBOOK
networks that meet the needs of a wide
range of users. Motorists, transit passengers, This Workbook can be used by transportation
bicyclists, and pedestrians, including agencies to assess their current project delivery
individuals with disabilities, have unique needs practices, clarify misconceptions about specific
and infrastructure is being adapted to the USDOT requirements and policies relating to
multimodal nature of travel. These agencies project delivery, and lay the groundwork for
must also address sometimes competing goals, improving and accelerating the delivery of their
including safety; environmental protection; multimodal projects. This Workbook has been
citizens’ connectivity to jobs, health care, organized to correspond to the different phases
and other critical destinations, particularly in of a typical project development process. From
rural communities; mobility; and economic planning and programming through design
competitiveness. The transportation project and construction, the strategies presented in
development process, from early planning stages this Workbook offer ideas and inspiration from
to final design and construction, also needs agencies that have successfully implemented
to evolve to address and meet these goals. them. The Workbook is designed to be viewed
electronically so that readers can quickly find
While project development often results in high- and link to applicable strategies. The Workbook
quality constructed infrastructure, the process provides numerous relevant resources and real-
can experience delays and challenges as projects world examples of projects that have applied the
move from one phase to the next. This is true strategies featured in this document. References
for multimodal projects — particularly those and hyperlinks are located in Section V.
intended to serve bicyclists and pedestrians,
but also including transit-supportive roadway This Workbook describes thirteen (13) key
projects. Even at the earliest stages of planning, strategies that have been used effectively to
projects can be delayed due to a wide range of accelerate multimodal projects. Each strategy
issues. Timelines for multimodal infrastructure is written as a standalone section. The following
projects can cover several years while demand Workbook Navigation Guides point readers
for the infrastructure continues to build. to the most useful strategies to overcome
existing or potential challenges to delivering
The United States Department of Transportation multimodal projects efficiently. The first guide
(USDOT) Strategic Plan lays out four core lists the most relevant strategies within each
goals: safety, infrastructure, accountability, and phase of project development. The second
innovation. Each of these goals is supported guide lists the strategies that are most relevant
by strategic objectives that emphasize the to key challenges expressed by practitioners.
need to accelerate project delivery.
2
GUIDE 1 - STRATEGIES RELATED TO PROJECT DEVELOPMENT PHASE
PROJECT DEVELOPMENT PHASE MOST RELEVANT STRATEGIES
Environmental 5
Make Appropriate and Effective Use
of Categorical Exclusions (CEs)
Review
Document Multimodal Elements in the
6 Project’s Purpose and Need Statement
Design 7
Incorporate Context-Based Design into
State Design Processes and Manuals
Apply and Leverage the Innovative
8 Multimodal Treatments in the MUTCD
3
GUIDE 2 – STRATEGIES RELATED TO KEY CHALLENGES
KEY CHALLENGES MOST RELEVANT STRATEGIES
Programming Delays and Develop Prioritization Methods
1 for Multimodal Projects
Funding Source Challenges
Allow Flexibility in Funding Smaller, Low-
2 Cost Projects and Project Elements
Document Multimodal Elements in the
6 Project’s Purpose and Need Statement
4
III. Key Challenges
Delays and challenges in project delivery prioritizing projects using these types of criteria,
are not unique to multimodal infrastructure it becomes difficult for agencies to justify
projects. All transportation projects tend spending funds on active transportation projects.
to encounter obstacles, but the process
for planning and developing multimodal
projects includes some unique challenges. INADEQUATE INTERNAL AND
To develop this Workbook, practitioners EXTERNAL COORDINATION
working for State DOTs, local and regional Nearly every stakeholder interaction included a
transportation agencies, and others provided discussion about interdepartmental coordination
input on the challenges they typically face and collaboration across disciplines. This issue
when implementing multimodal infrastructure is often discussed but seems to be rarely
projects. Small group interviews, interactive solved: agency staff remain in their respective
webinars, and one-on-one discussions were silos, so that various departments within
used to identify numerous challenges agencies an agency, as well as across agencies, can
encounter when delivering multimodal struggle to coordinate on project delivery.
projects. The following challenges were shared
across numerous agencies and can serve as
a template for others to begin identifying INADEQUATE COMMUNITY INPUT
areas where projects may encounter delays.
Public involvement is an important part of
FUNDING SOURCE CHALLENGES track this part of the process. The timing of
when community input occurs is important.
Taking time to gather meaningful community
The process used to add projects to a State’s
input early on, especially on issues that the
Transportation Improvement Program (STIP),
agency previously has struggled to achieve
Metropolitan Transportation Plan (MTP),
community buy-in, can result in higher-quality
and Transportation Improvement Program
projects that meet less resistance from key
(TIP) can be difficult for a project sponsor to
constituencies during and after implementation.
navigate. As a result, project sponsors can be
In addition, minimum State and Federal
reluctant to rely on these sources of funding
requirements for obtaining public input (e.g.,
when others are available. Some stakeholders
public hearings or newspaper advertisements)
perceive that projects relying on Federal
are insufficiently proactive to allow agencies to
funding sources experience delays compared
effectively engage with project stakeholders
to those using local or other State funds.
at times during project development when
5
Section Header PlaceholderIV. Top Strategies
more inclusive design approaches even when
guidance promotes flexibility. The design
exception process, when used, may be viewed
for Accelerating
as a difficult process that will delay the project.
LENGTHY ENVIRONMENTAL
REVIEWS Multimodal
Project Delivery
While many of the projects discussed with
practitioners during the development of
this Workbook appeared to be eligible for
categorical exclusions under the regulations The strategies presented in this
implementing the National Environmental section are organized by the project
Policy Act (NEPA), many of the projects still development phase in which the strategy
underwent the types of lengthy environmental would be applied. The information
reviews typically reserved for larger roadway or provided includes the constraint or
“capital projects.” A one-size-fits-all approach challenge addressed by the strategy;
to applying NEPA requirements may not be a description of the strategy; the likely
appropriate for multimodal projects with small effectiveness of the strategy in terms of
environmental footprints, beneficial impacts, time and cost savings; and the strategy’s
and relatively low costs, and which do not applicability and transferability to other
involve unusual circumstances as defined in transportation agencies. This summary
the regulations (23 CFR 771.117 and 118). information is followed by examples and
case studies of successful applications
INSUFFICIENT STAFF CAPACITY OR (including references and links to more
information). Some case studies have
TECHNICAL KNOWLEDGE been expanded to provide even more
detail. These top strategies have been
An agency’s ability to accelerate project delivery successfully applied by one or more
can be constrained by the availability of staff transportation agencies and are not
to manage and move projects from one phase intended to be an exhaustive list of
of development to the next. Several agencies all the possible ways an agency could
mentioned challenges with accelerated delivery accelerate multimodal project delivery.
of local projects through Vision Zero programs:
in some cases, more money was available for
projects, but staff were stretched thin. Other
agencies lack opportunities to bring their
designers and planners up to speed on the
latest research and best practices. The ability
to travel for conferences and training is often
limited at the State and local level, resulting in
few opportunities for staff to meet with peers
and share experiences. Bringing technical
training to staff is an alternative approach, but
funding for this type of activity is also limited.
6
PLANNING AND PROJECT SCOPING AND SELECTION
DEVELOP PRIORITIZATION METHODS
1 FOR MULTIMODAL PROJECTS
STRATEGY OVERVIEW
Multimodal projects compete for funding primarily
In the former case, projects can be delayed when the project turns out to be ineligible for a
particular grant funding source. Developing a process and criteria to examine eligible capital
projects and review grant requirements helps determine the viability and appropriateness
of opportunities and avoids time wasted seeking funding from inappropriate sources.
In the latter case, the sheer number of users of the auto mode can dominate the ratings
when project prioritization criteria focus on a small number of factors, such as vehicle-
miles traveled or vehicular level of service. Implementing a scoring process that includes
pedestrian and bicycle-related prioritization criteria and/or that weights projects differently
when they include multimodal elements or could help multimodal projects compete on a
more level playing field with other infrastructure projects. The specific criteria, methods,
and requirements used to compare projects should reflect both the funding program’s
goals and the goals of the communities in which the projects would be located. The
project selection and prioritization process should identify the criteria and process for
prioritizing implementation of transportation plan elements
(including multimodal trade-offs) for inclusion in the
Transportation Improvement Program (TIP) and
any changes in priorities from previous TIPs.
CONSTRAINTS/ This strategy is supported by Federal law on
CHALLENGES the funding of bicycle transportation and
pedestrian walkways: “Bicycle transportation
ADDRESSED facilities and pedestrian walkways shall
be considered, where appropriate, in
• Difficulties competing for limited conjunction with all new construction and
funding. reconstruction of transportation facilities,
except where bicycle and pedestrian
use are not permitted” 23 U.S.C. 217 (g)
(1). It is also supported by Federal law
on National Highway System design
EFFECTIVENESS
criteria: “A design for new construction,
reconstruction, resurfacing (except for
maintenance resurfacing), restoration,
• Developing a process or rehabilitation of a highway on the
and criteria to examine National Highway System (other than a
eligible capital projects and highway also on the Interstate System)
review grant requirements can shall consider… access for other modes
avoid time spent seeking funding of transportation” 23 U.S.C. 109 (c)(1)(d).
from inappropriate sources.
7
APPLICABILITY & TRANSFERABILITY
• A project prioritization program that incorporates multimodal factors can be used by any
transportation agency. When implemented, multimodal projects have a better chance of
successfully obtaining funding and moving forward toward implementation.
8
EXAMPLES AND CASE STUDIES CONTINUED
Projects with Multimodal Elements the federal contract with local forces using
local funds. Communities are responsible for
Maine DOT Batch Procurement and maintaining the RRFBs and a list of locations
D Dissemination of Rectangular Rapid is kept by MaineDOT in accordance with
Flashing Beacons (RRFB) - MaineDOT is the MUTCD Interim Approval (IA-21).
implementing a progressive program to improve
pedestrian safety as part of its Strategic Highway
Safety Plan (SHSP) and has made the selection
of RRFBs one of their common pedestrian
countermeasures during the past several years. In Tailoring the Project
addition to installing RRFBs through their typical Development Process and
project development process, the agency has
Funding to the Project Size
reached out to communities to become partners
in the installation and maintenance of RRFBs. Small projects should not be subject
Maine DOT has created a single procurement- to the same processes required of
only contract for RRFBs where municipalities large-scale transportation projects and
pay for installation outside the federal should be delivered in much shorter
contract. This allows MaineDOT to support timelines.USDOT and FHWA have
the countermeasure on smaller scale projects developed numerous resources to offer
throughout the State avoiding the somewhat guidance on ways to simplify the project
duplicative and sometimes lengthy process development process and funding
associated with multiple federal contracts. requirements for small scale projects.
Some of the methods that are most
The agency’s selection process requires
relevant to multimodal projects include
that projects: be site specific or systemic;
the use of Categorical Exclusions and
consistent with the SHSP; correct or improve
Programmatic Agreements to accelerate
a hazardous road location; and/or address a
the environmental review process (see
highway safety problem. They have taken a data
Strategy 5) and the allocation of Federal
driven and systemic approach to rectangular
funding for small projects (see Strategy 2).
rapid flashing beacons for crosswalks that
uses crash data, information from the public,
and expertise from local public works.
Maryland DOT is required by a 2017
Under this program, there are three ways
an RRFB can be installed at a location in E law to develop a scoring system
for major transportation projects.
accordance with MaineDOT’s Crosswalk
Measure 1 (the degree to which the
Policy as a part of this RRFB project.
project is projected to increase the use of
1. Municipality participates in a crosswalks and walking, biking, and transit) under Goal 5
sidewalks training course and leaves with a set of (Community Vitality) provides points for:
RRFBs to install at an appropriate location.
• Treatments that encourage non-motorized
2. MaineDOT receives a specific request to install transportation (including roadway design
RRFB at a location deemed to be unsafe and elements, wayfinding, and transit-oriented
after a site review/discussion it is determined to development),
be an appropriate location.
• Improvements to existing bicycle, pedestrian,
3. MaineDOT Pedestrian Forums, held in cities and and transit facilities,
towns across the State with high numbers of
-- New bicycle, pedestrian, and transit facilities,
pedestrian crashes, identify an unsafe location
and
and a team of experts determine an RRFB is an
appropriate countermeasure. -- Inclusion in a bicycle or pedestrian plan.
To encourage local agencies to be involved in
the process, MaineDOT contracts for RRFBs
have been exclusively for procurement.
There is no construction phase included in
the contract. RRFBs are installed outside
9
Virginia SMART SCALE Although Measure A.3 includes transit, park-and-
F ride, and other components, specific bicycle and
Virginia DOT (VDOT) developed pedestrian scores are also included as follows:
SMART SCALE to guide project
selection and ensure that resources are • When a project constructs or replaces on- or
spread equitably across the State and off-road bicycle facilities, buffered or clearly
among different types of projects. delineated facilities are required.
10
2 ALLOW FLEXIBILITY IN FUNDING SMALLER,
LOW-COST PROJECTS AND PROJECT ELEMENTS
STRATEGY OVERVIEW
To receive Federal funds, projects must be identified in the statewide
transportation improvement program/transportation improvement program
(STIP/TIP) and meet additional requirements for the specified funding program.
Multimodal projects may be implemented as standalone projects (e.g., a trail project)
or as multimodal elements within a larger project (e.g., sidewalk widening or pedestrian-
friendly signal timing as part of a roadway new construction and reconstruction project).
Because of the STIP/TIP review and approval process, it can take up to nine (9) months to
add a project to this list. For smaller scale projects, it can take more time to add the project
to the STIP/TIP than it would to construct the project. Standalone bicycle and pedestrian
projects are often small in scale and cost and may not warrant the time and effort needed to
be listed on the STIP/TIP. For a small project, the effort (staff time and cost) of programming
a project can seem out of proportion with the amount of project funds allocated.
Grouped listings aggregate individual projects of a similar project type into one fundable
package within the STIP/TIP, thus providing flexibility to fund small scale projects as
they become ready for funding and does not require the additional time to gain an
individual spot on the STIP/TIP. Projects may be grouped by function, work type, and/
or geographic area using the applicable classifications under 23 CFR 771.117(c) and (d)
and/or 40 CFR 93. For example, a multimodal project potentially could be grouped as
a pedestrian and bicycle project (in air quality attainment areas), or as a safety project
(e.g., railroad/highway crossings; projects that correct, improve, or eliminate a hazardous
location or feature; pavement resurfacing and/or rehabilitation; median additions, etc.).
In nonattainment and maintenance areas, project classifications must be consistent
with the “exempt project” classifications contained in the Environmental Protection
Agency (EPA) transportation conformity regulations (40 CFR 93, subpart A).
12
3 IDENTIFY MULTIMODAL NEEDS EARLY
IN PROJECT DEVELOPMENT
STRATEGY OVERVIEW
Identifying multimodal needs early in the project development process
allows the early incorporation of project elements to address those
needs. Identifying these needs during planning and project scoping can
be critical to avoiding delays during design, right-of-way acquisition, and
funding. Early incorporation of multimodal elements allows potential solutions
to be more comprehensively evaluated as they are developed and can also help
uncover right-of-way acquisition needs earlier in the project development process.
While most States are legally able to purchase ROW for multimodal elements or projects,
most typically avoid purchasing ROW for multimodal projects as standard practice. One
exception is Massachusetts DOT, which routinely purchases ROW for sidewalks and bicycle
facilities. They identify ROW needs during the corridor planning phase of a project.
Local plans (for example, comprehensive plans, local multimodal plans and capital
programs, regional transportation plans and transit agency plans) can be good
sources for understanding the multimodal needs of areas or projects.
$$$$
land development patterns, built form,
and context-based roadway design speed.
The policy’s goal is to maintain safety and
mobility while serving the transportation
needs of users of all ages and abilities.
14
EXAMPLES AND CASE STUDIES CONTINUED
Florida DOT (FDOT) developed a users are and the appropriate roadway design
C Context-Based Design Manual that uses speeds and design criteria to support these
a context-sensitive approach to identify users. The design criteria provide a range of
the full range of users of a facility and to inform allowable design speeds, from 25 to 45 mph,
the facility’s design speed and criteria to suitable for lower-speed environments within
support the context and the identified users. urban areas, along with context-appropriate
sidewalk widths and bicycle facilities. A unique
FDOT routinely plans, designs, constructs, classification, C2T Rural Town, was introduced
and maintains State roadways in harmony with criteria that support the more urban, small-
with a roadway’s surrounding land uses and town fabric of many Florida communities.
intended users. To this end, the department
adopted a Context Classification System
comprising eight context classifications that
represent the various community types found
throughout Florida. The context classification
of a roadway, together with its transportation
characteristics, informs who the roadway’s
15
Proposed Design Speed Ranges by Context Classifications for
Non-Limited-Access Facilities
C1-Natural 55-70
C2-Rural 55-70
C2T-Rural Town 25-45
C3-Suburban 35-55
C4-Urban General 30-45
C5-Urban Center 25-35
C6-Urban Core 25-30
16
4 IMPROVE PUBLIC INVOLVEMENT
STRATEGY OVERVIEW
Transportation projects are ultimately intended to reflect a community’s
vision and goals, however stakeholders may feel they have limited opportunities
to guide projects. Transportation agencies may wonder why concerns were not
raised earlier in the planning process; however, members of the public and other
stakeholders may not have been involved in the initial public meetings used to develop
the plan and gather input for a project. Early public involvement can identify community
values and concerns proactively and avoid delays during later stages of project delivery.
EFFECTIVENESS
important details are set in stone.
17
APPLICABILITY & TRANSFERABILITY
• The use of innovative public involvement techniques that are tailored to the project
and the communities served by the project has widespread applicability.
• States may have specific laws that dictate notification and format requirements.
18
ENVIRONMENTAL REVIEW
MAKE APPROPRIATE AND EFFECTIVE USE OF
5 CATEGORICAL EXCLUSIONS
STRATEGY OVERVIEW
Projects requiring approvals or funding from Federal agencies are subject
to compliance with the National Environmental Policy Act (NEPA). Most
bicycle and pedestrian projects may be processed as Categorical Exclusions
(CE) under NEPA if they meet the regulatory criteria under 23 CFR 771.117.
USDOT has identified ways to accelerate the NEPA process for projects that have
nonsignificant environmental footprints, minor impacts, beneficial impacts, and
relatively low costs, as long as they do not involve unusual circumstances. Federal
regulations define a categorical exclusion (CE) as “a category of actions which do not
individually or cumulatively have a significant effect on the human environment ... and
... for which, therefore, neither an environmental assessment nor an environmental
impact statement is required” (40 CFR 1508.4). Examples of project types eligible
for a CE under FHWA processes are given in 23 CFR 771.117 (c) and (d). In general,
the following types of pedestrian and bicycle projects may be eligible for a CE:
19
APPLICABILITY & TRANSFERABILITY
• Federal regulations provide the ability to obtain CEs for a variety of active transportation
projects and selected types of transit projects, which can greatly simplify the
environmental approval process for those projects.
• Multimodal elements of larger projects are subject to the environmental requirements for
the larger project. However, those projects may still qualify for a CE if the other project
elements are also eligible for a CE, the project is confined to the existing operational
right-of-way, or the overall project cost and Federal funding share is low enough, and if
no unusual circumstances exist.
20
6 INTEGRATE MULTIMODAL ELEMENTS IN THE
PROJECT’S PURPOSE AND NEED STATEMENT
STRATEGY OVERVIEW
The first critical step in any transportation project is to understand
and document the full range of needs from the perspective of all
potential project users, so that stakeholders and the project sponsor
will have a thorough understanding of the problems to be addressed by
the project. Project needs are the basis for developing project alternatives.
Without understanding and documenting these needs, critical project elements
may be overlooked and may be difficult to implement at a later date.
21
APPLICABILITY & TRANSFERABILITY
• This strategy is applicable to all projects with multimodal elements. Even if a project
does not need Federal approvals, the inclusion of purpose and need statements for
all reasonable modes can help to ensure that appropriate multimodal elements
are included in the project as it is planned, funded and implemented.
22
7 INCORPORATE CONTEXT-BASED DESIGN INTO
STATE DESIGN PROCESSES AND MANUALS
STRATEGY OVERVIEW
State-level design guidance can apply Federal recommendations for
more context-based design practices. State roadway design manuals
drive many design decisions and impact many projects. Some stakeholders
reported rigid design requirements, such as requirements for bicycle lanes on
roadways where shared-use paths were also present. Relaxing these types of
requirements to allow agencies to use discretion and context-sensitive approaches
can greatly accelerate project delivery. AASHTO, National Association of City
Transportation Officials (NACTO) and FHWA have developed several manuals that
provide innovative and context-sensitive design guidance that can be incorporated into
or referenced in State design guidance to offer more examples to roadway designers;
identifying these exceptions early in the project will accelerate project delivery.
In many States, design standards were created to address specific safety concerns related
to vehicle travel. Traffic signal spacing requirements, for example, were encouraged
on suburban arterials to minimize conflict points and maintain regular, predictable
traffic flow. But as suburban arterials mature into places with many destinations,
these spacing requirements can become an impediment to safety. Land uses that
create multimodal travel demand in midblock locations cannot be served by signals
even if they meet traditional signal warrants because of these design controls.
24
8 APPLY AND LEVERAGE THE INNOVATIVE
MULTIMODAL TREATMENTS IN MUTCD
STRATEGY OVERVIEW
Although the Manual on Uniform Traffic Control Devices (MUTCD) has not
been fully updated since 2009, new and innovative traffic control devices have
been tested and given Interim Approvals under the MUTCD’s experimentation
process. In many cases, these devices were already permitted under the language
of the 2009 edition. The MUTCD acknowledges that technology, traffic control, and
traffic operations are evolving and it provides ways for practitioners to keep pace with
the state of the practice, while keeping the manual grounded in research and experience.
The FHWA welcomes official experimentation requests for new and innovative traffic control
devices from State and local transportation agencies. Section 1A.10 of the MUTCD describes
the experimentation process and lists the information required to be provided as part of the
request. It also describes the actions the requesting agency is committing to if the request
is approved; in particular, the agency will need to measure before-and-after conditions to
evaluate the treatment’s safety and operational effects and will need to commit to removing
the treatment if FHWA does not grant an Interim Approval or if significant safety concerns
arise during the experiment. The timeline involved with FHWA review of a request to
experiment, as well as for the experiment itself (if approved), is shown in the flowchart below.
Once a traffic control device has been sufficiently vetted, it can be granted Interim Approval
status following FHWA review of the final report on the experiment. Interim approvals allow
for the interim use of a new traffic control device, or a modification to an existing device.
Any jurisdiction that wants to use a device that has received
an interim approval can do so after submitting a written
request to FHWA and receiving approval, as described in
paragraph 18 of Section 1A.10 of the MUTCD. If a State
CONSTRAINTS/ DOT makes the request, they may choose whether to
apply the request to all roads in the State, or just
CHALLENGES those owned and operated by the DOT itself.
Jurisdictions within a State that has not yet
ADDRESSED requested to use the Interim Approval may
do so on their own. Devices with Interim
• Design Guidelines Insensitive to Approval can be used in the same way as
Context devices in the 2009 edition of the Manual.
• Insufficient Staff Capacity or
Technical Knowledge
EFFECTIVENESS
• Leveraging the use of
Interim Approvals enables
agencies and jurisdictions
to implement vetted traffic
control devices without delays
associated with experimentation
requests.
Credit: www.pedbikeimages.org
/ Carl Sundstrom
25
APPLICABILITY & TRANSFERABILITY
• The MUTCD experimentation process provides a mechanism to advance projects
incorporating innovative and cutting-edge techniques.
• Once an Interim Approval for a device has been granted, any State or local
jurisdiction can send a request to FHWA to use that device without having to repeat
the experimentation process, allowing these agencies to place innovative traffic
control devices with proven benefits into service more quickly.
26
FUNDING
PROMOTE FLEXIBILITY IN EXISTING
9 FUNDING SOURCES
STRATEGY OVERVIEW
FHWA has been actively funding multimodal projects for decades. While
there is tremendous flexibility in using Federal funds for multimodal projects,
some State DOTs are not leveraging the use of these funds for these purposes.
To dispel some misconceptions about the use of Federal funding for multimodal
projects, FHWA has posted a set of clarifications on their website at https://www.
fhwa.dot.gov/environment/bicycle_pedestrian/guidance/misconceptions.cfm.
Pedestrian and bicycle projects can be funded through numerous FHWA and FTA
funding programs. At FHWA, these projects are eligible for funding through the
Congestion Mitigation and Air Quality Improvement (CMAQ) Program, Surface
Transportation Block Grant Program (STBG), Highway Safety Improvement Program
(HSIP), National Highway Performance Program (NHPP), Federal Lands Access
Programs (FLAP), and Transportation Alternatives Program (TAP). FTA funding may
also be available for pedestrian and bicycle elements of transit projects through
the Capital Investment Grant Program (Section 5309) and the associated transit
improvements component of the Urbanized Area Formula Program (Section 5307).
27
APPLICABILITY & TRANSFERABILITY
• Federal funding for multimodal projects is available through a variety of programs.
Agencies that become familiar with the range of available programs may
experience greater success finding funding to advance their multimodal
projects.
STRATEGY OVERVIEW
Transportation agencies are using public-private partnerships (P3s) to leverage
Federal dollars for private investment, enabling projects to be delivered sooner
and with less Federal investment. Transportation agencies across the country
have developed specific funding programs to implement multimodal projects. Some
of these programs were developed to allocate certain types of Federal dollars--for
example, the portion of the Transportation Alternatives Set-Aside allocated to regional
transportation planning agencies for competitive grants within the region. Other programs
may be funded through dedicated sources of State, regional, or local funds that have been
allocated for bicycle, pedestrian, and/or transit projects. For example, San Francisco’s
Livable Streets Program, which focuses on creating safe and inviting streets and sidewalks
for all, includes enhancements to the bicycle and pedestrian environment, the deployment
of nearly 190 school crossing guards, and traffic calming on neighborhood streets.
Many State DOTs are developing funding programs specifically to fund and
implement multimodal infrastructure. An example of this is the Active Transportation
Program (ATP) within the California Department of Transportation (Caltrans). The
ATP consolidates existing Federal and State transportation programs, including the
State share of the Transportation Alternatives Set-Aside, the Bicycle Transportation
Account, and the State Safe Routes to School program, into a single program
with a focus to make California a national leader in active transportation.
29
APPLICABILITY & TRANSFERABILITY
• Identifying new funding sources and leveraging existing programs is applicable
throughout the country.
EXAMPLES AND CASE STUDIES are confidential, all of the approaches utilize
Denver Regional Transportation P3 concepts. With a P3 in place, it has been
A District (RTD) Eagle P3 was the first full predicted that the partnership would result in
design, build, partially finance, operate completion of the West Santa Ana Branch Transit
and maintain (DBFOM) transit public-private Corridor 14 to 15 years ahead of schedule.
partnership (P3) in the United States. The
project comprises the East Rail and Gold lines, Pennsylvania DOT (PennDOT) –
the first segment of the Northwest Rai Line to C Pennsylvania Community Transportation
Westminster, procurement of 54 commuter rail Initiative (PCTI) - PennDOT set aside
cars and a commuter rail maintenance facility. $60 Million for the specific implementation
Funding for Eagle P3 comes from Federal grants of projects that were supportive of their
and loans, RTD sales taxes and the contractor’s Smart Transportation Initiative; multimodal
financial contribution. The project received projects were strong candidates for this
a $1.03 billion Full Funding Grant Agreement program. PennDOT collaborated with local
from the Federal Transit Administration governments, other State agencies, transit
and $450 million in private financing. providers,developers and neighborhood
residents to arrive at community-oriented
Los Angeles County Metropolitan transportation solutions and established this
B Transportation Authority (Metro) has competitive funding program to support
been pursuing a series of public-private and incentivize these projects. More than
partnerships since 2007. The primary objective $400 M in applications were received to
of Metro’s Public-Private Partnership Program is: compete for $60 M in the initial year; many
of these were multimodal projects.
“Creation of a permanent, programmatic
approach to identifying, assessing, and
implementing projects utilizing private
sector participation, with the overall goal of
accelerating Metro’s delivery of transit and
highway programs in Los Angeles County.”
STRATEGY OVERVIEW
With limited resources and limited space within public rights-of-way,
multimodal facilities or multimodal project elements are often competing for
the same space as automobiles. Multimodal elements or projects are susceptible
to elimination as a project progresses so that the remainder of the project will cost
less or have a smaller footprint and can continue to move through the later phases
of development. Providing information about the benefits provided by multimodal
infrastructure to decision-makers and the public will help garner support to keep
multimodal projects and project elements moving forward. When project elements are
eliminated, it may be difficult and will likely cost more to implement them at a later date.
Multimodal infrastructure can support several agency policy objectives, including reducing
congestion, expanding mobility options, addressing
equity concerns, improving public health, improving the
environment, and supporting desired land development.
Members of the community who do not have access
31
APPLICABILITY & TRANSFERABILITY
• Safety, travel times, and other factors or concerns related to walking and biking
are often a barrier to the adoption of active transportation. Methods of measuring
and communicating the overall benefits of active transportation networks can be
applied across jurisdictions to gain project support and remove road blocks to
implementation. The need for data and analysis that demonstrates and communicates
the overall benefits of active transportation and the safety and suitability of the
walking and biking networks for all age groups and abilities is widespread.
Credit: www.pedbikeimages.org
/ SDOT 32
EXAMPLES AND CASE STUDIES CONTINUED
San Francisco Municipal Transportation
B Agency (SFMTA) developed the Safe
Streets Evaluation Handbook to track
progress and measure project performance
with respect to street safety. The Handbook
is a step-by-step guide for SFMTA project
managers to complete evaluations of
projects that are being implemented.
Safe Behavior Are vehicles travel- Vehicle Speeds Pneumatic tubes with Weekday; 48 2 months 6 months after Contractor
ing at safer speeds? manual reduction hrs. prior
Safe Behavior Are vehicles travel- Vehicle Speeds Pneumatic tubes with Weekday; 48 2 months 6 months after Contractor
ing at safer speeds? manual reduction hrs. prior
Perceived Do people feel User Survey Online survey with Four 2-hr. pro- 2 months 6 months after Contractor
Safety safer? promotion in the field motion periods; prior
survey online 2
weeks
Perceived Do people feel User Survey Online survey with Four 2-hr. pro- 2 months 6 months after Contractor
Safety safer? promotion in the field motion periods; prior
Perceived Do people feel User Survey Online survey with Four 2-hr. pro- 2 months 6 months after Contractor
8 survey online 2
Safety safer? promotion in the field motion periods; prior
weeks
survey online 2
weeks
8
8
STRATEGY OVERVIEW
Multimodal design is advancing at a rapid pace, and ongoing professional
development and knowledge exchange is crucial to advance the state of
the practice and to implement high-quality transportation infrastructure.
Capacity-building programs can provide staff with the necessary skills and
knowledge to meet the challenges arising from increasing and competing
demands on the transportation network and ensure that the transportation
workforce is trained in the necessary tools, technologies, methodologies,
and policies required to build and operate a safe multimodal system.
ITE works with transportation professionals to improve mobility and safety for all
transportation system users and help build livable communities. They promote professional
development and support and encourage education, identify necessary research, develops
technical resources including standards and recommended practices, develops public
awareness programs, and serves as a conduit for the exchange
of professional information. The State Smart Transportation
Initiative works in partnership with governors, DOTs,
and other transportation providers to improve safety,
35
APPLICABILITY & TRANSFERABILITY
• Capacity-building programs are widely applicable and often transferable. Providing
targeted training and materials enables agencies to stay current with emerging treatments
and anticipate future changes.
• Another limitation is differences in State and local policies and design standards,
which may make some training programs context-based or location-specific and
not directly transferable without modifications.
36
13 PROVIDE TECHNICAL ASSISTANCE TO
SUPPORT SMALL AND RURAL COMMUNITIES
STRATEGY OVERVIEW
Many small-scale multimodal projects are implemented by local
governments under Local Aid Programs (LAP) agreements with State
DOTs. Direct management of a multimodal project entails many constraints
and challenges. Supervising the management of these projects by others
comes with additional constraints and challenges. Bicycle and pedestrian
projects are typically local and small-scale and often attract the interest of local
sponsors who want to advance them. However, local governments – especially smaller
jurisdictions that may have limited planning and engineering resources – are often
inexperienced in this field. Providing technical assistance and/or technical partnerships
could help local jurisdictions advance multimodal projects more efficiently.
CHALLENGES
ADDRESSED
• Insufficient Staff Capacity
or Technical knowledge
EFFECTIVENESS
• Early and ongoing
technical assistance can
improve the percentage
of project concepts that
receive funding and advance to
implementation and can minimize
the duration of the project
development process from concept
to open-to-traffic.
Credit: www.pedbikeimages.org
37 / Dan Burden
APPLICABILITY & TRANSFERABILITY
• These strategies are widely applicable and transferable.
Annotated Resources/Policies
Project Development Phase: Planning and Project Scoping
Federal Highway Administration FHWA – Guidebook for Measuring
(FHWA) - Use of Federal Funds for Multimodal Network Connectivity
Bicycle and Pedestrian Efforts
https://www.fhwa.dot.gov/environment/
https://www.transportation.gov/mission/health/ bicycle_pedestrian/publications/
use-Federal-funds-bicycle-pedestrian-efforts multimodal_connectivity/
https://www.fhwa.dot.gov/environment/
bicycle_pedestrian/funding/bipedfund.cfm
FHWA - Incorporating On-Road Bicycle
Summarizes Federal-Aid Highway Program Networks into Resurfacing Projects
funding for pedestrian and bicycle facilities
https://www.fhwa.dot.gov/environment/
and programs by year and by State.
bicycle_pedestrian/publications/resurfacing/
39
FHWA - Bike Network Mapping Idea Book Federally Funded Early Acquisition Project FAQ
https://www.fhwa.dot.gov/environment/ https://www.fhwa.dot.gov/real_estate/
bicycle_pedestrian/publications/bikemap_book/ policy_guidance/fedfundeap.cfm
Identifies how a transportation agency can better Addresses the acquisition of real property—
integrate existing and proposed pedestrian including a specific parcel, a portion of
and bicycle network maps into their planning a transportation corridor, or an entire
process, to reduce project delay and capture corridor—in advance of the completion of
both proactive and reactive opportunities. the environmental review process under
the National Environmental Policy Act.
www.pedbikeinfo.org/planning/
facilities_designresourceindex.cfm
40
Project Development Phase: Design (continued)
FHWA - Small Town and Rural FHWA - Guide for Maintaining Pedestrian
Multimodal Networks. Facilities for Enhanced Safety
https://www.fhwa.dot.gov/environment/ https://safety.fhwa.dot.gov/ped_bike/
bicycle_pedestrian/publications/small_towns/ tools_solve/fhwasa13037/
https://www.fhwa.dot.gov/environment/bicycle_
pedestrian/publications/multimodal_networks/
https://www.fhwa.dot.gov/environment/bicycle_ https://www.fhwa.dot.gov/environment/
pedestrian/funding/funding_opportunities.cfm bicycle_pedestrian/publications/
separated_bikelane_pdg/page00.cfm
Identifies potential eligibility for
pedestrian and bicycle projects under U.S. Outlines planning considerations for separated
Department of Transportation surface bike lanes and provides a menu of design
transportation funding programs options covering multiple scenarios. Provides
detailed intersection design information covering
topics such as turning movement operations,
signalization, signage, and on-road markings.
FTA - Bicycles and Transit
https://www.transit.dot.gov/regulations-and-
guidance/environmental-programs/livable- FTA - Final Policy Statement on Eligibility
sustainable-communities/bicycles-transit of Pedestrian and Bicycle Improvements
under Federal Transit Law
Webpage providing examples of
integrating bicycles with transit, funding https://www.Federalregister.gov/
opportunities, and additional resources articles/2011/08/19/2011-21273/final-policy-
related to linking bicycles and transit. statement-onthe-eligibility-of-pedestrian-
and-bicycle-improvements-under-Federal
41
Project Development Phase: Design (continued)
FHWA - Office of Safety - Road Diets
(Roadway Reconfiguration) and
Road Diet Informational Guide
https://safety.fhwa.dot.gov/road_diets
https://safety.fhwa.dot.gov/road_
diets/guidance/info_guide/
42
The references and resources related to each FHWA. n.d. “Expediting Project Delivery (C19)
strategy and case study is listed below. Strategic Highway Research Program Product.”
Environmental Review Toolkit. Federal Highway
Planning and Scoping Administration. https://www.environment.
fhwa.dot.gov/env_initiatives/SHRP2.aspx
43
Maine DOT “Rectangular Rapid Flashing
Beacon (RRFB) Program” Maine DOT. 2016.
http://www.bikemaine.org/??-content/ 3
uploads/2016/08/SRTSnews-2015.7.pdf
Strategy 3
United States Government Publishing Office. Florida Department of Transportation.
2012. “23 CFR 450.326 – Transportation 2018. “FDOT Design Manual.” Florida
Improvement Program (TIP) Revisions and Department of Transportation. 2018.
Relationship to the STIP.” Code of Federal http://fdot.gov/roadway/fdm/
Regulations. United States Government
Publishing Office. 2012. https://www.gpo.
gov/fdsys/pkg/CFR-2012-title23-vol1/pdf/ FHWA. 2016. “Revisions to the Controlling
CFR-2012-title23-vol1-sec450-326.pdf Criteria for Design and Documentation
for Design Exceptions.” Federal Highway
Administration. https://www.fhwa.dot.
United States Department of Transportation. gov/design/standards/160505.cfm
2016. “Use of Federal Funds for Bicycle
and Pedestrian Efforts.” Transportation
and Health Tool. United States Department FHWA. 2016. “Achieving Multimodal
of Transportation. 2016. https://www. Networks: Applying Design Flexibility and
transportation.gov/mission/health/use- Reducing Conflicts.” FHWA-HEP-16-055.
Federal-funds-bicycle-pedestrian-efforts 2016. Federal Highway Administration.
https://www.fhwa.dot.gov/environment/
bicycle_pedestrian/publications/
FHWA. 2018. “Funding Information.” Bicycle and multimodal_networks/fhwahep16055.pdf
Pedestrian Program. United States Department
of Transportation. 2018. https://www.fhwa.dot.
gov/environment/bicycle_pedestrian/funding/. FHWA. 2016. “Small Town and Rural
Multimodal Networks.” FHWA-HEP-17-024.
2016. Federal Highway Administration. https://
FHWA. 2016. “Transportation Alternatives www.fhwa.dot.gov/environment/bicycle_
(TA) Set-Aside Implementation Guidance.” pedestrian/publications/small_towns/
United States Department of Transportation.
2016. https://www.fhwa.dot.gov/
environment/transportation_alternatives/ FHWA. 2013. “A Guide for Maintaining
guidance/guidance_2016.pdf Pedestrian Facilities for Enhanced Safety.”
FHWA-SA-13-037. 2013. Federal Highway
Administration. https://safety.fhwa.dot.gov/
FHWA. 2018. “Federal-Aid Highway Program ped_bike/tools_solve/fhwasa13037/
Funding for Pedestrian and Bicycle Facilities
and Programs.” Bicycle and Pedestrian Program.
United States Department of Transportation.
2018. https://www.fhwa.dot.gov/environment/
bicycle_pedestrian/funding/bipedfund.cfm
44
FHWA. 2017. “Additional Flexibilities in
45
FHWA. 2015. “Separated Bike Lane Planning and
10
Cooperative Research Program. http://www.
trb.org/Publications/Blurbs/173932.aspx
9 Strategy 10
Los Angeles County Metropolitan Transportation
Strategy 9 Agency. https://www.metro.net/projects/
public_private_partnerships/metro-
FHWA. 2016. “Bicycles & Transit.” United innovative-project-delivery-initiatives/
States Department of Transportation. https://
www.transit.dot.gov/regulations-and- San Francisco Municipal Transportation Agency.
guidance/environmental-programs/livable- n.d. “Livable Streets.” SFMTA Divisions and Units.
sustainable-communities/bicycles-transit https://www.sfmta.com/units/livable-streets
46
Smart Growth America. 2018. Resources.
11 https://smartgrowthamerica.org/work-with-
us/apply-for-our-free-technical-assistance/
47
Credit: www.pedbikeimages.org
/ Russ Roca 48
Credit: www.pedbikeimages.org Credit: www.pedbikeimages.org
/ Dan Burden / Jason Espie