Pennsylvania s 2007 Transportation Program Adopted by the State Transportation Commission on August 3, Version 08/03/06 Effective 10/01/06

Transcription

1 Pennsylvania s 2007 Transportation Program Adopted by the State Transportation Commission on August 3, 2006 Version 08/03/06 Effective 10/01/06

2 Table of Contents Introduction and Purpose... 3 Background... 4 Federal Legislation... 5 PennPlan Moves!... 8 Mobility Plan... 9 Program Development Process Act 120 of Twelve Year Program State Transportation Commission Metropolitan Planning Organization Rural Planning Organization Independent Counties Public Input Process Program Funding Level Summary Project Delivery Interstate Management Transportation Funding and Reform Commission Planning Partner Regions Adams Altoona Centre

3 DVRPC Erie Franklin County Harrisburg Johnstown Lancaster Lebanon Lehigh Valley Northeastern Pennsylvania North Central Northwest Northern Tier Reading Scranton-Wilkes Barre Shenango Valley SEDA-COG Southern Alleghenies Southwestern Pennsylvania Williamsport York Appendix I Planning Partner Contacts Appendix II STC Membership Appendix III 2007 Twelve Year Program

4 T his document provides an overview of the Commonwealth s 2007 Twelve Year Transportation Program. Information related to federal and state requirements and regulations is included, as are the Introduction and Purpose program goals, stakeholders involved in the process and highlights of regional priorities. P ennsylvania s Transportation Program is the state s transportation agenda for the next twelve-year period. In Pennsylvania, as elsewhere, the demand for transportation improvements far exceeds available resources. The programming process is designed to help Pennsylvania prioritize its many transportation projects within the available funding. The collaboration that involves the State Transportation Commission (STC), Metropolitan and Rural Planning Organizations, Federal Transportation Agencies and owners and operators of the transportation system has led to a fiscally responsible Program that provides resources for projects that can be realistically delivered. The Pennsylvania Transportation Program is the tool to lead the decision-making process toward accomplishing the Department s mission of a transportation system and services exceeding customer expectations. The objective of the program is to enhance mobility, commerce, safety and the economic vitality of the Commonwealth through transportation system improvements, within the context of sound land use and community values. The program will continue to stress maintenance and operation of the existing system versus expansion. The Commonwealth will continue to place high priority on projects that rehabilitate, reconstruct, and renew the existing transportation infrastructure. In keeping with the goals and objectives of the 2007 program, PennDOT has developed a strategic agenda with the mission to provide services and a safe intermodal transportation system that attract businesses and residents and stimulates Pennsylvania s economy. The strategic agenda includes five main focus areas: System Preservation-This incorporates the maintenance first approach for preservation and betterment of all systems and services. Management & Productivity-This area seeks to improve the effectiveness and efficiency of the products and services that PennDOT provides to its customers. Quality of Life-This area involves integrating social, economic, and environmental factors with the transportation improvement program. 3

5 Mobility-This area concerns the movement of people and goods in an efficient matter. Safety-The safety priority will be addressed through various programs including education, infrastructure improvements and enforcement. Interstate Highway System 50 th Anniversary O n June 29, 1956, President Dwight D. Eisenhower signed the Federal Highway Act of Background This Act increased the highway systems length to 41,000 miles; provided for nationwide design standards developed through the American Association of State Highway and Transportation Officials (AASHTO); established a new method of apportioning funds among states and set federal government s share of the project cost at 90 percent. The Highway Revenue Act of 1956 created the Highway Trust Fund as a dedicated source of funding for the Interstate Highway System, on a pay as-you-go basis through the federal gas tax and other motor-vehicle user fees. Pennsylvania, Missouri and Kansas claim to have laid the first portions of the Interstate Highway System. The Pennsylvania Turnpike between Irwin and Carlisle opened on October 1, It has since been incorporated into the Interstate system as I-76 and I-70 and is one of the oldest segments in the Interstate Route System. As the fourth largest in total interstate miles and interstate routes, Pennsylvania continues to be of major importance to the Interstate System allowing the movement of goods and people to major destinations across the Commonwealth and the country. With the formation of a statewide Interstate Management Program in PennDOT to function as a separate programming entity, this programming concept is consistent with the Department s philosophy of managing the Interstate System within Pennsylvania as a single, statewide asset. Approximately $370 million annually has been earmarked for funding Interstate roadway and bridge projects. 4

6 Pennsylvania is proud to be a state partner with AASHTO in recognizing the 50 th Anniversary of the Interstate System. Additional information regarding the Interstate System along with facts and photos can be found at the AASHTO web site at Federal Legislation Intermodal Surface Transportation Efficiency Act (ISTEA) I n December 1991, the Intermodal Surface Transportation Efficiency Act of 1991 (ISTEA) was signed into law, authorizing funding and programs for highways, highway safety, bike/pedestrian, and mass transit for the six federal fiscal years of 1992 through ISTEA brought new requirements and a renewed focus to the State Transportation Improvement Program (STIP) and county and regional Transportation Improvement Programs (TIPs), which are requirements for states to receive federal funding. In Pennsylvania, the STIP and TIPs contain projects that are programmed over a four-year period. The programs are updated every two years. These four-year periods coincided with the first four years of the Commonwealth s Twelve Year Transportation Program (TYP) and two-year update cycle. ISTEA reflected the following goals: Created a National Highway System (NHS), consisting of existing Interstate routes and a portion of the Federalaid Primary System. Allowed state and local governments more flexibility in determining transportation solutions Promoted the use of new technologies, such as Intelligent Transportation Systems Continued and increased funding for mass transit Made highway funds available to address environmental issues such as meeting air quality standards Required state uniformity in vehicle registration and fuel tax reporting to ease the record keeping 5

7 Transportation Equity Act for the 21st Century (TEA-21) T he Transportation Equity Act for the 21st Century was enacted June 9, 1998 as the successor to ISTEA. TEA-21 authorized the Federal surface transportation programs for highways, highway safety, bike/pedestrian, and transit for the six federal fiscal years of 1998 through 2003, inclusive. TEA-21 refined prior planning requirements into the following seven factors that must be considered when developing transportation programs: Support economic vitality. Increase safety and security. Increase accessibility and mobility. Protect the environment. Integrate the transportation system. Promote efficiency in the transportation system. Preserve existing facilities. Safe, Accountable, Flexible, Efficient Transportation Equity Act: A Legacy for Users (SAFETEA-LU) A fter an unprecedented 12 stopgap extensions to extend federal assistance after TEA-21 expired on September 30, 2003, the Safe, Accountable, Flexible, Efficient Transportation Equity Act: A Legacy for Users was signed into law on August 10, The new bill authorized funding and programs for highways, highway safety, bike/ pedestrian, and mass transit for the federal fiscal years of The bill is frequently backdated through fiscal year 2004 to cover the stopgap extensions that allowed federal assistance to continue to transportation programs across the country. SAFETEA-LU, provides guaranteed funding at a cost of $286.4 billion keyed to Highway Trust Fund receipts. SAFETEA-LU builds upon many programs that were started with its predecessors. Environmental protection, transportation efficiency, safety provisions, and system preservation are all strongly highlighted in the legislation. In addition new programs have been introduced to SAFETEA-LU. New programs include Safe Routes to School, a program designed to identify safe routes for students to walk or bicycle to 6

8 and from schools around the state and country. Eligible activities include projects such as sidewalk improvements, traffic calming measures, secure bike parking, and traffic diversion improvements within two miles of a school. The Highway Safety Improvement Program replaces the Optional Safety and Hazard Elimination program. It funds projects to correct or improve hazardous sections of road or address a highway safety problem. Intersection safety improvements and construction of traffic calming features are examples of eligible projects for this program. Projects of National and Regional Significance (of which Pennsylvania has three) is a new program that provides for high cost projects of national or regional significance. These projects cost more than $500 million and are heavily earmarked in SAFETEA-LU. Funds are made available at a rate of 20% per year from fiscal year 2005 through fiscal year 2009 and federal participation is 80%. The three projects in Pennsylvania that fall under this program are US 422 in Montgomery County, I-80 in Monroe County, and PA 28 in Allegheny County. SAFETEA-LU also adds renewed focus to the STIP and TIP Development process. In the past, as stipulated by ISTEA (the grandparent to SAFETEA-LU), TIPs were to be updated at least every three years. Pennsylvania s Metropolitan Planning Organizations (MPOs) and Rural Planning Organizations (RPOs) update their TIPs every two years during the Twelve Year Program update process. SAFETEA-LU now requires that TIPs are updated at least every four years. This coincides with the first four years of the Twelve Year Program (see figure 1). TYP (EXAMPLE) 1st Four Years 2nd Four Years 3rd Four Years TIP/STIP Figure 1: Twelve Year Program Cycle 7

9 I n January of 2000, the Pennsylvania Department of Transportation (PennDOT) developed a long-range plan called PennPlan PennPlan Moves! Moves! (PennPlan). This is a twenty-five year plan that identifies specific statewide corridors and planning objectives. PennPlan, notable for the public input behind the plan s goals and objectives, represents an initiative by the Pennsylvania Department of Transportation to anticipate and shape a response to Pennsylvania s need for transportation facilities and services in the first quarter of the 21st Century. It is a framework for highways, transit facilities, passenger and freight railroads, air and water ports, and bicycle and pedestrian trails, and how they will connect to form a system. During plan development, extensive coordination occurred among PennDOT, Metropolitan Planning Organizations (MPO), Rural Planning Organizations (RPO) and county planning organizations. PennPlan links the transportation planning done at the regional and local levels to statewide goals. It is not a listing of transportation projects. Rather, it identifies changes and developments that will help achieve its 10 statewide goals for the overall transportation system. These goals are: 1. Promote safety of the transportation system. 2. Improvement the environment. 3. Retain jobs and expand economic opportunities. 4. Make transportation decisions that support land use planning objectives 5. Maintain, upgrade, and improve the transportation system. 6. Inform and involve the public and improve customer service. 7. Advance regional and corridor-based 8. Develop transportation alternatives and manage demand. 9. Promote smooth, easy connections between transportation alternatives. 10. Ensure accessibility of the system and mobility for everyone. PennDOT in conjunction with the planning and engineering firm Gannett Fleming has developed a 25 year statewide long range transportation plan that will serve as a comprehensive update of PennPlan MOVES!. 8

10 Mobility Plan T he Pennsylvania Mobility Plan is the comprehensive update of PennPlan, Pennsylvania s current long-range transportation plan, to be completed in early Fall of Governor Rendell and Secretary Biehler directed that the Mobility Plan address: the mobility needs of Pennsylvanians state and local system preservation alternatives and connections between modes (types of transportation) the role of transportation in economic development, land use, safety, security, and the environment freight strategies the needs of PennDOT's customers and their participation in the planning process. Based on a technical analysis of transportation data, as well as the ideas and concerns of stakeholders, the Mobility Plan will provide a framework of long-term objectives for Pennsylvania to guide the development of specific transportation programs and projects. The Mobility Plan is a transportation plan, covering all major modes of transportation in the state. This approach will be particularly important as we consider how to best achieve the plan s broad goals on a mode-bymode basis. Products and Initiatives 1. Surveys and Data Collection: Public and stakeholder surveys and focus groups were conducted to help begin framing the Mobility Plan. The results are documented in the Public Involvement Highlights Report. 2. Transportation Choices for Pennsylvania: The Transportation Choices for Pennsylvania document started a dialogue about alternative future directions for Pennsylvania transportation. 3. Regional Outreach 1: Key stakeholder groups evaluated the Mobility Plan s broad directions and the alternative fu- 9

11 ture transportation directions. Sessions were conducted in eight areas of the state, involving 800 stakeholders at 36 workshops. The results are documented in Regional Outreach 1 Quantitative Graphs and Setting Directions. 4. Draft Mobility Plan: The preliminary draft of the Plan document was completed in early December This draft represents a concise plan summary and is geared toward those in the transportation industry and stakeholders. The plan underwent several iterations before June This process includes further review by the department, other state government officials and the plan Development Team. The draft plan served as the foundation for Regional Outreach Regional Outreach 2: 20 stakeholder sector workshops were held including the planning partners, modes, advocacy groups and environmental justice constituencies. These workshops were oriented around plan review and action identification with a focus on collaboration, partnership building and implementation. The public phase of this effort began in the second half of April where the Department presented the draft plan and provided regional and local context. These public involvement meetings were held statewide and the internet was used to acquire additional feedback. 6. Other Mobility Plan Products: The Mobility Plan package includes several other products were developed including a Brochure, an Implementation Document, a User s Guide, a Compendium of Interim Products, and a Speaker s Bureau Kit. 7. Core PA Transportation System: The Pennsylvania Transportation Advisory Committee (TAC) in coordination with the Mobility Plan performed a study to help define a core Pennsylvania transportation system (CPTS). The initial definition of an illustrative core transportation system is an integrated transportation system of modal facilities of greatest importance. 10

12 Program Development Process T he following are key aspects and requirements of the Transportation Improvement Program (TIP): A TIP is developed in each Metropolitan Planning Organization, Rural Planning Organization, and Independent County. The TIP lists all highway, bridge, and public transportation projects for which federal and state capital funds are anticipated. The TIP is the agreed upon multi-modal list of specific priority projects. The TIP is four years in length in Pennsylvania based on the federal fiscal year (October 1st to September 30th). The TIP must be fiscally constrained by year based on resources that can reasonably be expected to be available. Large projects can be programmed over multiple years, consistent with their cash flow requirements. The TIP must be updated every four years according to guidelines described in SAFETEA-LU, the most recent Federal surface transportation authorization.. The public must be involved in TIP development. The TIP may be modified or amended. All TIPs are incorporated into the Statewide TIP (STIP). The Federal Highway Administration, the Federal Transit Administration and the Environmental Protection Agency approve the STIP. The STIP is the first four years of the Twelve Year Program. Development of the TIPs and STIP is coordinated with the State Transportation Commission and elected officials. The TIP must conform to air quality standards established by the Clean Air Act Amendments of 1990 if an area is designated as not meeting air quality standards. 11

13 A ct 120 of 1970 is the Act that created PennDOT and the State Transportation Commission. Act 120, as amended, requires the Department of Transportation to prepare and submit to the State Transportation Commission Act 120 of 1970 (STC) every two years, a program of transportation improvements which it recommends be undertaken during the next twelve years. This program is to address all transportation modes and be fiscally constrained; that is, listing only programs and projects that are reasonably expected to be funded over the twelve-year period. The Twelve Year Transportation Program is separated into three four-year program periods. The first four years coincide with the federally required STIP and TIPs. (See Figure 1 on page 7 ). Decisions regarding how available transportation funds are to be used for a variety of proposed rail, roadway, transit, bicycle, pedestrian, and airport improvement projects are made through the transportation planning and programming process. This process includes regional transportation planning agencies as well as PennDOT. So, what is this Twelve Year Transportation Program? It is a dynamic schedule of agreed upon priority projects that Penn- DOT, with its various partners, will work to accomplish over a twelve-year period. The program is fiscally constrained to be consistent with expected funding levels and includes highways and bridges, transit, bicycle and pedestrian facilities, rail freight and aviation projects. Regular review of the Program is made and changes, if necessary, are based on the ability to accomplish projects, the costs for projects, and changing needs. The Federal Highway Administration (FHWA) and Federal Transit Administration (FTA) review and approve the changes to the Commonwealth s STIP. FHWA and FTA also play integral roles assisting the Department with meeting the requirements to utilize federal funds available to Pennsylvania. The Program not only lists specific projects to be undertaken during the first four-year period, it also details the anticipated schedule and costs for each project phase. Major projects also may be detailed in the second or third four-year period generally, if pre-construction phases are listed within the first four-year period. Otherwise, statewide line items by program category are identified in the second and third program periods. As new projects are later identified, these line items are adjusted to reflect the detailed phases and costs associated with the new project, all within fiscal constraints. The 2007 Transportation Program project listing is included in Appendix III of this document. The statewide planning process establishes a cooperative, continuous, and comprehensive framework for making transportation investment decisions throughout the State and is administered jointly by the Federal Highway Administration (FHWA), the Federal Transit Administration (FTA), and the Pennsylvania Department of Transportation. 12

14 T he Commonwealth s Twelve Year Transportation Program is Pennsylvania's official transportation program. It covers all transportation modes, both passenger and freight; and includes consideration Twelve Year Program of public and private transportation systems, facilities and operations. The Twelve Year Transportation Program is used to guide the planning and decision-making process toward meeting the Commonwealth s vision of a seamless transportation system. How does a project become part of the Transportation Program? An individual or group wishing to have a project placed on the Program should first contact the regional MPO, RPO or County Planning Agency (Appendix I) in their area. These agencies, which maintain a listing of all candidate projects in the region, will consider the candidate project for inclusion on the regional Transportation Improvement Program and the Twelve Year Transportation Program. As a result of ongoing monitoring of transportation facilities conditions, PennDOT and local government officials may also identify candidate transportation improvement projects. These projects will also be presented to the MPO, RPO or County Planning Agency for consideration for inclusion on the Program. Every two years the planning partners rework the Twelve Year Transportation Program. All the planning partners cooperatively develop the general, procedural, and financial guidance and distribute it to each regional entity to develop their portion of the Program. The individual or group may now, through working with the MPO or RPO, prepare to testify on behalf of the project or projects at the biennial State Transportation Commission (STC)/Planning Partner Public Hearings. Hearing locations and logistics are publicized prior to the hearing dates. The process players in the Twelve Year Program development process are the State Transportation Commission (STC), the Metropolitan Planning Organizations (MPOs), the Rural Planning Organizations (RPOs), Federal Highway Administration (FHWA), Federal Transit Administration, PennDOT and the general public. All of these partners help to develop a Twelve Year Program that fits with the transportation needs of the Commonwealth and also fits within the funding available for the projects. 13

15 State Transportation Commission C reated by Act 120 of The State Transportation Commission s (STC) purpose is to: Evaluate and determine the condition and performance of the Commonwealth s Transportation System; Assess the resources required to preserve, restore, extend, and expand transportation facilities and services; conserve Pennsylvania s communities; and support a transportation system that ensures the economic vitality of the Commonwealth. The STC consists of fifteen members (Appendix II). The Secretary of Transportation is the chair of the group. There are four members from the State General Assembly - the Chairs and the Minority Chairs of the Committees on Transportation in the Senate and the House of Representatives. The Governor appoints the other ten members, subject to Senate confirmation. Not more than five from the same political party One each from Philadelphia and Allegheny Counties One holding a pilot s license Two members of a transportation authority based in one of Pennsylvania s MPOs and RPOs and Independent County but not Philadelphia and Allegheny Counties 14

16 Metropolitan Planning Organizations D uring the development of the 2007 Transportation Program there were 15 Metropolitan Planning Organizations (MPOs) in Pennsylvania. MPOs are required by federal law in urbanized areas of 50,000 or more in population. MPO members include: Local elected officials Representatives of the major modes of transportation PennDOT Others MPOs are required to develop and maintain a Long Range Transportation Plan of at least 20 years and a Transportation Improvement Program that covers four years. MPOs are supported by Federal and State Planning Funds. MPOs in Pennsylvania are (See Map 1) 1. Altoona 2. Centre Region 3. Delaware Valley 4. Erie 5. Harrisburg 6. Johnstown 7. Lackawanna/Luzerne 8. Lancaster 9. Lebanon Map 1: MPOs in Pennsylvania 15

17 10. Lehigh Valley 11. Reading 12. Shenango Valley 13. Southwestern Pennsylvania 14. Williamsport 15. York Rural Planning Organizations T here are 7 Rural Planning Organizations (RPOs) in Pennsylvania. Federal law does not require a rural transportation planning and programming process, but in Pennsylvania RPOs and independent counties serve a similar function as MPOs for the rural areas of the state. Federal law requires states to consult and coordinate with local officials in rural areas of the state. RPOs members include: County officials Representatives of the major modes of transportation PennDOT Others RPOs also develop and maintain a Long Range Transportation Plan of at least 20 years and a Improvement Program that covers four years. RPOs are supported by Federal and State Planning Funds. RPOs in Pennsylvania are: (See Map 2) 1. Adams Map 2: RPOs in Pennsylvania 16

18 2. North Central PA Regional Planning and Development Commission 3. Northeastern PA Alliance 4. Northern Tier Regional Planning and Development Commission 5. Northwestern PA Regional Planning and Development Commission 6. SEDA-Council of Governments (SEDA-COG) 7. Southern Alleghenies Regional Planning and Development Commission Independent Counties T here is one Independent County in Pennsylvania. Independent Counties (ICs) are not affiliated with an MPO or RPO. As with RPOs, the only federal requirement is that the state consult and coordinate with local officials in the non- metropolitan areas of the state. However, PennDOT has found it to be advantageous to partner with the independent county in the planning and programming process. Independent County in Pennsylvania is: (See Map 3) 1. Franklin County Map 3: Independent Counties in Pennsylvania 17

19 I n recognition and support of the guiding principles of Pennsylvania s planning and programming process the State Transportation Commission, at its January 27, 2005 quarterly meeting, began the formulation of the 2007 Program by scheduling a series of public hearings during August and September of Public Input Process Public input was received as early as possible so that the program development process would proceed in accordance with all the key participants planning and programming cycles. By scheduling these hearings during late summer, the State Transportation Commission s public involvement was at the forefront of the process, and thus could provide input for later deliberations on the program by all partners (State Transportation Commission, PennDOT, MPOs, RPOs, and Independent County). It is through these hearings that all planning partners gain a better understanding of the transportation needs and priorities of the metropolitan and rural regions, the general public, elected officials, the business community, interest groups and citizens. With the knowledge of the transportation needs and desires of all Pennsylvanians, better decisions can be made on the expenditure of available transportation funds on a variety of proposed rail, highway, bridge, transit, aviation, bicycle and pedestrian projects. T he Twelve Year Transportation Program is a list of projects and project phases identified for funding over the next twelve years. Development 2007 Program of the 2007 Twelve Year Transportation Program placed emphasis on openness and partnerships. All parties involved in the development of the 2007 Program were made aware of the amount of funds the Commonwealth expected to receive for transportation improvement purposes, and these very same partners were key players involved in structuring the process under which the Twelve Year Program was developed. The Commonwealth s Twelve Year Transportation Program defines a direction for transportation investment in Pennsylvania. Transportation needs, by any and all definitions, far exceed the available resources of the state and federal governments. Decisions need to be made on where to best target our limited transportation resources. Through this update of the program, PennDOT and the State Transportation Commission determined that priorities should be focused on projects: 18

20 That preserve the existing system, That reduce congestion and improve safety, That support the economic vitality of the Commonwealth, and Which are critical to the overall physical integrity and performance of the highest level transportation networks. Key aspects in the development of the first four-year period of the 2007 Twelve Year Program were: The State Transportation Commission (STC), the Department, MPOs, RPOs, and Independent County coordinated on a number of public involvement initiatives during the summer and early autumn of A continued emphasis on rightsizing to keep our many projects within the fiscal guidelines provided during the development process. The Department and its partners reached consensus on general, procedural and financial guidance for program development. Partner agencies (MPOs, RPOs, and Independent County), with input from PennDOT and the STC, produced draft Transportation Improvement Programs (TIPs) for their areas and submitted them to the Department for its review and response. From this point, issues were identified, differences were resolved and consensus was achieved. The 2007 Program is a financially responsible/fiscally constrained program centered on the Department s maintenancefirst philosophy. The 2007 Program contains nearly $40 billion dollars worth of projects involving all modes of transportation and intermodal connections. Of this total, over $14 billion is associated with the first four-year period of the 2007 Program. (Figure 2 on page 20). 19