path forward 2040 long range transportation plan - technical memorandum #2 goals and objectives

Technical Memorandum #2

Goals and Objectives

February 12, 2015

Path Forward 2040 Long Range Transportation

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GOALS,OBJECTIVES,PERFORMANCEMEASURESANDIMPLEMENTINGPOLICIESFACEDWITHESCALATINGDEMANDSFORTRANSPORTATIONINVESTMENTANDLIMITEDRESOURCES,ESTABLISHINGTHEGOALSANDOBJECTIVESWITHINTHELRTPISANESSENTIALFIRSTSTEPINDEFININGTHESUCCESSOFOURPLANANDGUIDINGDECISIONMAKING.

LRTP GOALS AND OBJECTIVES Through the LRTP, it is North Florida TPO’s vision to promote the regional optimization of mobility consistent with the values of local communities.

Specifically, the goals and objectives are to enhance the following:

Economic Competitiveness Livability Safety Mobility and Accessibility Equity in Decision Making System Preservation

The goals, objective and performance measures proposed are based on the transportation user’s point of view. The order of the goals and objectives do not indicate the priority.


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GOAL1:INVESTINPROJECTSTHATENHANCEECONOMICCOMPETITIVENESSInvesting in projects that enhance economic competitiveness are primarily those that improve travel time reliability, which is the most important factor for freight operators, enhance access to job and maximize the return on investment. Table 1 summarizes the objectives, performance measures and benchmarks associated with this goal.

GOAL2:INVESTINLIVABLEANDSUSTAINABLECOMMUNITIESThere no single definition of what constitutes a “livable” or “sustainable” transportation system. According to the definition endorsed by the Transportation Research Board Sustainable Transportation Indicators Subcommittee, a sustainable transportation system follows:

Allowsthebasicaccessanddevelopmentneedsofindividuals,companies,andsocietytobemetsafelyandinamannerconsistentwithhumanandecosystemhealth,andpromotesequitywithinandbetweensuccessivegenerations.

Isaffordable,operatesfairlyandefficiently,offersachoiceoftransportationmodes,andsupportsacompetitiveeconomy,aswellasbalancedregionaldevelopment.

Limitsair,water,noiseemissions,wasteandresourceuse.Limitsemissionsandwastewithintheplanet’sabilitytoabsorbthem,usesrenewableresourcesatorbelowtheirratesofgeneration,andusesnon‐renewableresourcesatorbelowtheratesofdevelopmentofrenewablesubstitutes,whileminimizingtheimpactontheuseoflandandthegenerationofnoise.

Table 2 on the next page summarizes the objectives, performance measures and benchmarks associated with this goal. The targets are to achieve the benchmarks by the year 2040.

Table 1. Enhance Economic Competitiveness Objectives and Performance Measures

Objective Performance Measure Benchmark

Improve travel reliability on major freight routes

Travel time reliability Maintain or improve the reliability

Enhance access to jobs Jobs within ½ mile of a congestion management system facility

Maintain or improve access to jobs

Maximize the return on investment Benefit: cost ratioReturn on investment

Rank benefit‐to‐cost ratioRank return on investment


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GOAL3:ENHANCESAFETYInvesting in projects that enhance safety will lead to reduced crashes and lower crash severity.

Table 3 summarizes the objectives, performance measures and benchmarks associated with this goal.

Table 3. Safety Objectives and Performance Measures


Reduce Crashes Number of crashes Crash rate per million vehicle miles

Reduce by 0.25% each year Reduce or maintain

Reduce Fatal crashes Number of fatalities Crash rate per million vehicle miles

Reduce by 0.25% each year Reduce or maintain

Table 2. Livability and Sustainability Objectives and Performance Measures


Enhance transit accessibility

¼ mile walk accessibility to transit stopsHouseholds within 5 miles of major transit centers or park and ride lots

95% of all stops(1)

Enhance transit ridership

Annual boardings per vehicle revenue mileAnnual boardings per vehicle revenue hour

(2) (2)

Enhance bicycle and pedestrian quality of service

Lane mile with bicycle and pedestrian facilities at the quality of service standard

85% of lane miles

Reduce the cost of congestion per capita

Transportation costs per capitaCosts of congestion

(3)

Reduce the impacts of investments on the natural environment

Environmental screening and mitigation Apply Efficient Decision Making Process to all projects in LRTP.

Reduce emissions from automobiles

Hydrocarbon, nitrous oxides and volatile organic compound emissions

Maintain attainment status. (4)

Consistency with land use planning

Includes active transportation design principles in context sensitive solutions

Include walkability standards in context sensitive solutions

Supports regional evacuation needs

Reduce clearance times for evacuations Improve clearance times by 15 minutes. (5)

Table notes

(1) This performance measure will not change significantly from year to year unless major route changes or new transit operations are deployed.

(2) Coordination with Jacksonville Transportation Authority is needed to develop the baseline and benchmark data needed. (3) Many exogenous factors influence this performance measure including the price of fuels that are beyond the scope of a

LRTP. However, this performance measure will be considered within the LRTP based on policy decisions made during the scenario development.

(4) Emissions will be determined using Florida emission factors from the FHWA Moves model. (5) Based on modeling provide by the Northeast Florida Regional Council.


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GOAL4:ENHANCEMOBILITYAND

ACCESSIBILITYEnhancing mobility includes addressing the four dimensions of mobility – quantity of travel, quality of travel, system accessibility and system utilization. Several of these measures also support other goals and objectives (such as livability and sustainability).

Mobility is about more than increasing the volume of persons served and managing congestion. Users want a less stressful commute, but they also want improved reliability of their travel, more choices including transit, walking and bicycling and to ensure we optimize system operations before we invest in new infrastructure.

Understanding the trade‐offs of these goals in the context of each corridor being considered is an essential element to identifying the right mobility solution for any project.

Table 4 summarizes the objectives, performance measures and benchmarks associated with this goal.

The measures associated with the quantity of travel are oriented to how many people use the network. These measures are important, as some operational improvements may increase the throughput of travel at a location, but the quality of travel flow (speeds, delays, etc.) may not change during the peak hour.

Table 4. Mobility and Accessibility Objectives and Performance Measures

Goal Mobility Performance Measures Benchmark

Optimize the quantity of travel

Person‐miles traveled (2)

Truck‐miles traveled (2)

Vehicle‐miles traveled (2)

Person trips (2)

Transit ridership Increase transit ridership

Optimize the quality if travel (1)

Average speed Maintain or improve the average travel speed

Delay Maintain or reduce the average vehicle delay

Average trip time Maintain or reduce the average trip time

Reliability Maintain or improve the reliability Achieve 95% reliability (on time arrival) on Strategic Intermodal System facilities.

Level of service on rural facilities Maintain the level of service standard (FDOT standard for Strategic Intermodal System facilities and local government standards for other facilities)

Improve the accessibility to mode choices

Proximity to major transportation hubs (3)

% miles bicycle accommodations (3)

% miles pedestrian accommodations (3)

Transit coverage Increase the % of population served with ¼ mile

Optimize the utilization of the system

% system heavily congested Maintain or reduce the % of system heavily congested

% travel heavily congested Maintain or reduce the % of travel heavily congested

Vehicles per lane mile Optimize the vehicles per lane mile for a desired LOS

Duration of congestion Maintain or reduce the duration of congestion

Transit load factor Optimize the transit load factor for a desired quality of service

(1) These measures may not apply on corridors not selected for context‐based solutions that may intentionally lower the running speed or capacity.

(2) Generally, increases in the quantity traveled (throughout) are preferred. However, consistent with livability and sustainability goals, one objective is to reduce the amount of travel needed. Therefore, no benchmarks are proposed, but monitoring is recommended.

(3) These performance measures will not change significantly from year to year but will be evaluated in each major update to the LRTP to establish benchmark and monitor performance.


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Optimizing the quantity of travel is proposed so that context sensitive solutions and alternatives that result in fewer trips and less use of the transportation network can be considered equitably with projects that add capacity. The quality of travel includes not only speeds and delays but also travel reliability.

Accessibility refers to the ease of reaching goods, services and other activities. Accessibility analysis is one component of mobility in that it considers the connections to adjacent land uses and the modalities of transportation between desired origins and destinations. By improving accessibility, we can meet the same needs of users by being smarter and enhancing the efficiencies of our investments.

As transportation providers, understanding the utilization of the system is important in optimizing the transportation network. Measures such as the duration of congestion are used to ensure the services and facilities are allocated appropriately.

Together these four dimensions will allow us to evaluate the tradeoffs of alternative transportation investments.

GOAL5:ENHANCEEQUITYINDECISIONMAKINGThe United States Environmental Protection Agency defines Environmental Justice as follows.

Environmental Justice is the fair treatment and meaningful involvement of all people regardless of race, color, national origin, or income with respect to the development, implementation, and enforcement of environmental laws, regulations, and policies. EPA has this goal for all communities and persons across this Nation [sic]. It will be achieved when everyone enjoys the same degree of protection from environmental and health hazards and equal access to the decision‐making process to have a healthy environment in which to live, learn, and work. 3F8F9F9F

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The United States Department of Transportation defines three fundamental Environmental Justice principles for the Federal Highway Administration and the Federal Transit Administration as follows:

1. "Environmental Justice". US EPA. Retrieved

2012‐03‐29.

1. To avoid, minimize, or mitigate disproportionately high and adverse human health and environmental effects, including social and economic effects, on minority populations and low‐income populations.

2. To ensure the full and fair participation by all potentially affected communities in the transportation decision‐making process.

3. To prevent the denial of, reduction in, or significant delay in the receipt of benefits by minority and low‐income populations.4F9F10F10F

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To address these goals, these three principles are adopted as objectives for this LRTP. The performance measures associated with each objective are less quantifiable than the objectives associated with other goals and are more process oriented. These three factors will be considered as part of the Needs Plan and Cost Feasible Plan and will be implemented using Geographic Information Systems techniques to identify the minority and low‐income populations and by designing outreach programs to involve minority and low‐income populations.

GOAL6:PRESERVEANDMAINTAINOUR

EXISTINGSYSTEMThe Federal Highway Administration (FHWA) and FDOT established formal goals and objectives for systems preservation that are proposed for adoption as part of this LRTP. They include:

1. Have 95 percent of the Strategic Intermodal System in good or better condition.

2. Have 85 percent of other arterials in good or better condition.

3. Strengthen bridges that are either (1) structurally deficient or (2) posted for weight restriction within six years on FDOT facilities.

4. Replace bridges that require structural repair and are more cost effective to replace within nine years on FDOT facilities.

5. Satisfy FDOT’s off system bridge replacement goals.

2. "Overview of Transportation and Environmental Justice". U.S. Department of Transportation. Retrieved 2010‐01‐22.


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In addition, the objective of the systems preservation and maintenance goal is to provide a transit fleet that meets Federal Transit Administration’s (FTA’s) requirements for system preservation, vehicle age and maintenance.

Table 5 summarizes the performance measures established for preservation, operations and maintenance.

LRTP IMPLEMENTING POLICIES

INTENTAdopting more formal policies as part of the LRTP is a first step toward a stronger regional approach to transportation decision making.

Establishing these policies is within the context of the role of the North Florida TPO as a policy board in regional planning. The intent is not for the Board to be involved with or direct design decisions. Engineers are the licensed professionals charged with safe and efficient operation of the transportation system. It is inappropriate, for the Board or elected officials to direct elements of roadway design. However, it is appropriate at the policy level to establish the general framework and policy guidelines for the objectives of the project to be constructed.

As changes to the LRTP or Transportation Improvement Program are considered for adoption by the North Florida TPO, a policy review of the projects should be performed to ensure the proposed investments reflect the values and intent of the goals and objectives within the LRTP. Policies for economic competitiveness, livability, safety, mobility and accessibility were adopted.

Federal and state requirements and policies associated with the LRTP’s goals for “Equity in Decision Making” and “System Preservation” were in place before this plan began and are recommended for direct adoption in the plan. The following are new policies to consider.

ECONOMICCOMPETITIVENESSThis policy requires each new project included in the 2040 Cost Feasible Plan provide a benefit‐to‐cost ratio. This policy will ensure that all projects are evaluated using consistent criteria in relationship to the economic goals of the plan and are focused on the greatest economic return and efficient allocation of resources.

Not all projects that are included in the Cost Feasible Plan may demonstrate benefit‐to‐cost ratio of greater than 1.0. The intent of the policy is for this to be one of the factors used to support decision‐making.

LIVABILITY

TRANSITINVESTMENTIncorporating a regional livability policy in the LRTP will guide investment decisions to promote transit and mode choices. The Jacksonville Transportation Authority has defined a vision for future transit investments with the 2040 horizon that may include bus rapid transit, trolleys, commuter rail and other modes. The policy intent is to support these investments.

In addition to considering transit alternatives, successful transit investments are dependent on walkable access, pedestrian‐oriented design and transit‐oriented design.

CONTEXTSENSITIVESOLUTIONSA policy in the LRTP that identifies corridors where investments would be made consistent with complete

Table 5. System Preservation Objectives and Performance Measures


Maintain roadways FDOT condition rating system 95% of SIS roadways in good or better condition 85% of non‐SIS roadways in good or better condition

Maintain bridges FDOT condition rating system Strengthen bridges that are either (1) structurally deficient or (2) posted for weight restriction within six years on FDOT facilities.

Replace bridges that require structural repair that more cost effective to replace within nine years on FDOT facilities.

Satisfy FDOT’s off system bridge replacement goals.

Maintain transit system FTA system preservation Age of vehicles


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street and context sensitive solutions principles is recommended. With the complete streets and context sensitive solutions concept, we are working to change the paradigm from “moving cars quickly” to “providing safe mobility for all modes”.

Implementing these concepts should reflect the context and character of the surrounding built and natural environments. These transportation investments need to be linked to land use and zoning requirements to ensure a consistent urban character and link transportation investment to achieve the goals of livability include.

Maximizing the number of lanes to six general uselanes. Any additional lanes would be bus rapidtransit or other managed lanes.

Investing in each corridor consistent with an urbancharacter defined through the project or adoptedfrom a prior study such as the Neighborhood Visionprojects performed by the City of Jacksonville. Forexample, on some corridors an urban village couldbe used which would require wider sidewalks andon‐street parking or grand boulevards, or “GrandBoulevard” concepts. Grand Boulevards wouldrequire bicycle, pedestrians and transit to beconsidered with equal consideration to automobilemobility.

Requiring land use and zoning regulations to be inplace by local governments to encourageredevelopment consistent with the urban designcharacteristics established for the corridor.

Establishing prototype corridor concepts for usewithin designated corridors or areas.

The following actions were performed as part of the developing the LRTP.

The policy built on work being prepared by localagencies within the region that are developingcontext sensitive solutions, livable communities andlow impact development guidelines.

A network of context sensitive solutions corridorswas identified where context sensitive solutions areconsidered a priority.

A list of context sensitive solutions guidelines wasprepared where specific types of investments areencouraged. The guidelines are provided inTechnical Memorandum #9 – Context SensitiveSolutions Guidelines.

A conceptual evaluation context sensitive solutionswere screened and identified projects that are

candidates for more detailed evaluation during project development phases were identified.

context sensitive solutions improvements wereincluded in the 2040 Needs Plan and 2040 CostFeasible Plan.

SAFETYAs part of the Strategic Safety Plan completed in 2012, several strategic safety corridors and intersections on the state‐maintained highway system and local roadways were identified. Many safety projects are smaller in scope and costs and can be implemented in a shorter time than major capacity improvements. Safety projects often result in high benefit‐to‐cost ratios. This policy leverages the plan to identify safety strategies for implanting and advancing projects.

TRANSPORTATIONSYSTEMSMANAGEMENTANDOPERATIONSThe policies associated with transit oriented development context sensitive solutions are key elements of the overall mobility and accessibility approach for this plan. In addition, to ensure we are optimizing the efficiency of the network, a Transportation Systems Management and Operations (TSM&O) policy is proposed.

TSM&O alternatives should be considered prior to investing in new capacity. These strategies are highly competitive with capacity projects funding in many settings. Examples of TSM&O approaches include:

Integrated corridor management Arterial traffic management systems Bus rapid transit Ramp metering Hard shoulder running Commercial vehicle information systems

The following actions were performed within the LRTP process.

A TSM&O network that includes the constrainedcorridors identified in the plan and the congestedcorridors identified in the Congestion ManagementPlan are designated.

A list of candidate TSM&O strategies and tacticsscreened and identified for more detailed evaluationduring project development phases.

TSM&O improvements were included in the 2040Needs Plan and the Cost Feasible Plan.


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CONSISTENCYWITHFEDERALANDSTATEPLANSTHELRTPCONSIDERSTHEREQUIREMENTSOFKEYLEGISLATIVE,STATEWIDEANDPOLICIES,GOALSANDOBJECTIVESANDISCONSISTENTWITHTHEREQUIREMENTSOFFEDERALANDSTATELEGISLATION.

MOVINGAHEADFORPROGRESSINTHE21ST

CENTURY11F11F

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Congress passed the act entitled Moving Ahead for Progress in the 21st Century (MAP‐21) in 2012 which establishes national performance goals for Federal highway programs and include:

Support the economic vitality of the metropolitanareas, especially by enabling global competitiveness,productivity and efficiency.

Increase the safety and security of thetransportation system for motorized and non‐motorized users to achieve a significant reduction in

3 Adapted from http://www.fhwa.dot.gov/planning/tpr_and_nepa/tprandnepa.cfm

traffic fatalities and serious injuries on all public roads.

Increase the accessibility and mobility of people andfreight to achieve a significant reduction in congestion on the National Highway System.

Improve the efficiency of the surface transportationsystem.

Improve the national freight network, strengthenthe ability of rural communities to access national and international trade markets, and support regional economic development.

Enhance the performance of the transportationsystem while protecting and enhancing the natural environment.


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As part of MAP‐21, the following new policies related to metropolitan planning were identified:

LRTPs and Transportation Improvement Programs (TIPs) are required to be developed through a performance‐based approach. As part of the performance‐based planning approach:

o Performance measures that support nationalgoals are required.

o Targets are required with monitoring towardattaining the performance measures.

o The targets should be established in coordinationwith other state or public transportationagencies.

o Targets are required to be integrated into thecontinuing planning process.

o The performance measures should be included inthe LRTP and show the progress that isanticipated to be achieved by plannedinvestments and decision making. SystemPerformance Reports are required that describethe progress made toward achieving theperformance targets.

o The U.S. Department of Transportation willestablish the minimum condition levels for allhighways on the Interstate System and bridgeson the National Highway System.

Within two years of enacting MAP‐21, each MPOshall include representation by transportationproviders, including public transit systems.

Table 6 demonstrates how these goals and objectives are consistent with the federal requirements in MAP‐21.

Table 7 outlines the Federal planning requirements as enumerated in CFR 450.322 and provides references to how each of the planning requirements is addressed.

The public involvement requirements from Federal and state legislation and policies are discussed in greater detail in the Public Involvement section.


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Table 6. Traceability Matrix

Goal Objective Support economic vitality

Increase safety and security

Increase accessibility

and mobility

Improve efficiency

Improve the

national freight network

Protect and enhance the environment

Invest in projects that enhance economic competitiveness

Improve travel time reliability on major freight routes.

Enhance access to jobs.

Maximize the return on investment.

Invest in livable communities and sustainable communities

Enhance transit accessibility.

Enhance transit ridership.

Enhance bicycle and pedestrian quality of service.

Reduce the cost of congestion per capita.

Reduce the impacts of improvements on the natural environment

Reduce emissions from automobiles.

Enhance safety Reduce crashes.

Reduce facilities.

Enhance mobility and accessibility

Optimize the quantity of travel.

Optimize the quality of travel.

Improve the accessibility to mode choices.

Optimize the utilization of the system.

Enhance equity in decision making

Avoid disproportionately adverse impacts on minority or low‐income populations.

Ensure fair participation by all affected populations.

Prevent the denial of benefits to minority and low‐income populations.

Preserve and maintain our existing system

Meet the FDOT pavement condition goals Meet the FDOT bridge condition goals

Satisfy FDOT’s off system bridge replacement goals.

Meet FTA transit system maintenance requirements.


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Table 7. Federal Planning Requirements

Planning Requirement Action Taken

(a) The metropolitan transportation planning process shall include the development of a transportation plan addressing no less than a 20‐year planning horizon as of the effective date. In nonattainment and maintenance areas, the effective date of the transportation plan shall be the date of a conformity determination issued by the FHWA and the FTA. In attainment areas, the effective date of the transportation plan shall be its date of adoption by the MPO.

The plan addresses a horizon of 2040. A maintenance plan is not required in this airshed based on Section 185A of the Clean Air Act Amendments and the adopted State Implementation Plan.

(b) The transportation plan shall include both long‐range and short‐range strategies/actions that lead to the development of an integrated multimodal transportation system to facilitate the safe and efficient movement of people and goods in addressing current and future transportation demand.

Short‐ and long‐range strategies were evaluated that included safety and TSM&O strategies.

(c) The MPO shall review and update the transportation plan at least every four years in air quality nonattainment and maintenance areas and at least every five years in attainment areas to confirm the transportation plan's validity and consistency with current and forecasted transportation and land use conditions and trends and to extend the forecast period to at least a 20‐year planning horizon. In addition, the MPO may revise the transportation plan at any time using the procedures in this section without a requirement to extend the horizon year. The transportation plan (and any revisions) shall be approved by the MPO and submitted for information purposes to the Governor. Copies of any updated or revised transportation plans must be provided to the FHWA and the FTA.

This is an update to the 2035 Long‐Range Transportation Plan. Not applicable.

(d) In metropolitan areas that are in nonattainment for ozone or carbon monoxide, the MPO shall coordinate the development of the metropolitan transportation plan with the process for developing transportation control measures in a State Implementation Plan.

Not applicable.

(e) The MPO, the State(s), and the public transportation operator(s) shall validate data utilized in preparing other existing modal plans for providing input to the transportation plan. In updating the transportation plan, the MPO shall base the update on the latest available estimates and assumptions for population, land use, travel, employment, congestion, and economic activity. The MPO shall approve transportation plan contents and supporting analyses produced by a transportation plan update.

Extensive coordination with all state and local transportation agencies including the Jacksonville Transportation Authority was performed in the development of the plan as outlined in the public involvement section. A travel demand model was prepared as part of the planning process that included information on the population, land use, travel, employment, congestion and economic activity. These data were reviewed and approved by the local agencies and the North Florida TPO.


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(f) The metropolitan transportation plan shall, at a minimum, include:

(1) The projected transportation demand of persons and goods in the metropolitan planning area over the period of the transportation plan.

A regional travel demand model was developed that included a freight analysis and forecasts through the year 2040.

(2) Existing and proposed transportation facilities (including major roadways, transit, multimodal and intermodal facilities, pedestrian walkways and bicycle facilities, and intermodal connectors) that should function as an integrated metropolitan transportation system, giving emphasis to those facilities that serve important national and regional transportation functions over the period of the transportation plan. In addition, the locally preferred alternative selected from an Alternatives Analysis under the FTA's Capital Investment Grant program (49 U.S.C. 5309 and 49 CFR part 611) needs to be adopted as part of the metropolitan transportation plan as a condition for funding under 49 U.S.C. 5309.

A comprehensive evaluation of all regional multimodal needs was conducted as part of the planning process. As documented in this report, an inventory of major roadways, transit, multimodal and intermodal facilities, pedestrian walkways and bicycle facilities, and intermodal connectors was completed and the needs were identified. Transit projects are identified in the plan. Projects where project development has begun and projects with plans to conduct alternatives analysis phases are also identified.

(3) Operational and management strategies to improve the performance of existing transportation facilities to relieve vehicular congestion and maximize the safety and mobility of people and goods.

A regional ITS and TSM&O Master Plan was adopted as part of the Needs Plan and funding will be allocated on an annual basis to address needs within the plan.

(4) Consideration of the results of the congestion management process in Transportation Management Areas that meet the requirements of this subpart, including the identification of single‐occupancy vehicle projects that result from a congestion management process in Transportation Management Areas that are nonattainment for ozone or carbon monoxide.

The congestion management process was used to identify needs and alternative strategies to address congestion.

(5) Assessment of capital investment and other strategies to preserve the existing and projected future metropolitan transportation infrastructure and provide for multimodal capacity increases based on regional priorities and needs. The metropolitan transportation plan may consider projects and strategies that address areas or corridors where current or projected congestion threatens the efficient functioning of key elements of the metropolitan area's transportation system.

Operations and maintenance of the region’s infrastructure was addressed and funding was allocated within this plan. An analysis of the regional congestion management plan and process was used to identify system bottlenecks and needs.

(6) Design concept and design scope descriptions of all existing and proposed transportation facilities in sufficient detail, regardless of funding source, in nonattainment and maintenance areas for conformity determinations under the EPA's transportation conformity rule (40 CFR part 93). In all areas (regardless of air quality designation), all proposed improvements shall be described in sufficient detail to develop cost estimates.

The purpose and need for each project is summarized for projects. Cost estimates were included based on prior studies for most of the projects included in the plan. Where project costs estimates were not available, generic cost estimates were used based on FDOT historical data. These are provided in Appendix K.


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(7) A discussion of types of potential environmental mitigation activities and potential areas to carry out these activities, including activities that may have the greatest potential to restore and maintain the environmental functions affected by the metropolitan transportation plan. The discussion may focus on policies, programs, or strategies, rather than at the project level. The discussion shall be developed in consultation with Federal, State, and Tribal land management, wildlife, and regulatory agencies. The MPO may establish reasonable timeframes for performing this consultation.

A systemwide approach to environmental mitigation activities are identified in the plan. Estimates for mitigation costs were provided for projects as part of the plan. The Efficient Transportation Decision Making Process established by FDOT was used to identify an inventory of issues that may be associated with each corridor. The FDOT has established procedures for addressing all mitigation issues in consultation with agencies as part of the Project Development and Environment (PD&E) process.

(8) Pedestrian walkway and bicycle transportation facilities in accordance with 23 U.S.C. 217(g);

Pedestrian and bicycle improvements are addressed in the plan as part of the Active Transportation discussion. Dedicated funding was set aside for bicycle and pedestrian projects. Projects that are candidates for context sensitive solutions and transit accessibility and mobility enhancements are also identified.

(9) Transportation and transit enhancement activities, as appropriate; and

Transit and transit mobility enhancement improvements are addressed in the plan.

(10) A financial plan that demonstrates how the adopted transportation plan can be implemented.

A financial plan was prepared and is documented in this plan.

(i) For purposes of transportation system operations and maintenance, the financial plan shall contain system‐level estimates of costs and revenue sources that are reasonably expected to be available to adequately operate and maintain Federal‐aid highways (as defined by 23 U.S.C. 101(a)(5)) and public transportation (as defined by title 49 U.S.C. Chapter 53).

System‐level estimates of operations and maintenance costs were identified for state roads, local roads and transit and are documented in this report.

(ii) For the purpose of developing the metropolitan transportation plan, the MPO, public transportation operator(s), and State shall cooperatively develop estimates of funds that will be available to support metropolitan transportation plan implementation, as required under §450.314(a). All necessary financial resources from public and private sources that are reasonably expected to be made available to carry out the transportation plan shall be identified.

Federal and state funding program estimates were provided in consultation with FDOT. These revenues are summarized in this report. Through consultation with the Jacksonville Transportation Authority, estimates of local match and operations and maintenance costs for each project were developed for transit.

(iii) The financial plan shall include recommendations on any additional financing strategies to fund projects and programs included in the metropolitan transportation plan. In the case of new funding sources, strategies for ensuring their availability shall be identified.

A financial plan was prepared that included alternative revenue sources. While developing the plan, alternatives for additional financing beyond those that are currently in place were not advanced to the Cost Feasible Plan stage. Toll revenues anticipated to fund the future First Coast Expressway were also estimated. Locally‐funded and privately‐funded projects of regional significance were also identified.


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(iv) In developing the financial plan, the MPO shall take into account all projects and strategies proposed for funding under title 23 U.S.C., title 49 U.S.C. Chapter 53 or with other Federal funds; State assistance; local sources; and private participation. Starting December 11, 2007, revenue and cost estimates that support the metropolitan transportation plan must use an inflation rate(s) to reflect “year of expenditure dollars,” based on reasonable financial principles and information, developed cooperatively by the MPO, State(s), and public transportation operator(s).

The Cost Feasible Plan was developed using year of expenditure dollars and inflation rates provided by FDOT. All values in this report are expressed in the year‐of‐expenditure, unless otherwise noted.

(v) For the outer years of the metropolitan transportation plan (i.e., beyond the first 10 years), the financial plan may reflect aggregate cost ranges/cost bands, as long as the future funding source(s) is reasonably expected to be available to support the projected cost ranges/cost bands.

Funding bands of 2019‐2020, 2021‐2025, 2026‐2030 and 2031‐2040 were used.

(vi) For nonattainment and maintenance areas, the financial plan shall address the specific financial strategies required to ensure the implementation of traffic control measures in the applicable State Implementation Plan.

A maintenance plan is not required in this airshed based on Section 185A of the Clean Air Act Amendments and the adopted State Implementation Plan.

(vii) For illustrative purposes, the financial plan may (but is not required to) include additional projects that would be included in the adopted transportation plan if additional resources beyond those identified in the financial plan were to become available.

A needs plan was developed that identifies the illustrative projects that would be included if additional resources were available. Illustrative projects that were not funded for construction but funded for preliminary engineering phases only are also summarized in the plan.

(viii) In cases that the FHWA and the FTA find a metropolitan transportation plan to be fiscally constrained and a revenue source is subsequently removed or substantially reduced (i.e., by legislative or administrative actions), the FHWA and the FTA will not withdraw the original determination of fiscal constraint; however, in such cases, the FHWA and the FTA will not act on an updated or amended metropolitan transportation plan that does not reflect the changed revenue situation.

Not applicable. This process is address in the plan maintenance phase.

(g) The MPO shall consult, as appropriate, with State and local agencies responsible for land use management, natural resources, environmental protection, conservation, and historic preservation concerning the development of the transportation plan. The consultation shall involve

Extensive coordination with agencies was performed as part of the planning process and is summarized in this report.

(1) Comparison of transportation plans with State conservation plans or maps, if available; or

Conservation areas were identified as part of the planning process and are shown on the plan maps.

(2) Comparison of transportation plans to inventories of natural or historic resources, if available.

A comparison was performed through the Efficient Transportation Decision Making Process.


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(h) The metropolitan transportation plan should include a safety element that incorporates or summarizes the priorities, goals, countermeasures, or projects for the MPA contained in the Strategic Highway Safety Plan required under 23 U.S.C. 148, as well as (as appropriate) emergency relief and disaster preparedness plans and strategies and policies that support homeland security (as appropriate) and safeguard the personal security of all motorized and non‐motorized users.

The region recently adopted a Strategic Safety Plan and the needs identified in the plan are summarized in this plan. Funding will be allocated on an annual basis for selected projects in consultation with FDOT. Emergency relief and disaster preparedness plans were prepared by the Regional Planning Council and considered as part of the plan. Evaluation routes received a priority designation as part of the prioritization process.

(i) The MPO shall provide citizens, affected public agencies, representatives of public transportation employees, freight shippers, providers of freight transportation services, private providers of transportation, representatives of users of public transportation, representatives of users of pedestrian walkways and bicycle transportation facilities, representatives of the disabled, and other interested parties with a reasonable opportunity to comment on the transportation plan using the participation plan developed under §450.316(a).

The North Florida TPO Board, Technical Advisory Board and Citizens Advisory Board were consulted through the plan development. These boards include representatives of all users. A project steering committee was also established which included additional members. The participation of these interest groups is documented in greater detail in Technical Memorandum #1 – Public Involvement and summarized in this report.

(j) The metropolitan transportation plan shall be published or otherwise made readily available by the MPO for public review, including (to the maximum extent practicable) in electronically accessible formats and means, such as the World Wide Web.

A project web site was established for the project and all materials were made available to the public for review. The project web site is http://pathforward2040.com/.

(k) A State or MPO shall not be required to select any project from the illustrative list of additional projects included in the financial plan under paragraph (f)(10) of this section.

All projects were adopted by the North Florida TPO. Two projects were excluded from consideration in the Cost Feasible Plan based on the potential environmental impacts. These projects are documented in the Environmental Considerations section.

(l) In nonattainment and maintenance areas for transportation‐related pollutants, the MPO, as well as the FHWA and the FTA, must make a conformity determination on any updated or amended transportation plan in accordance with the Clean Air Act and the EPA transportation conformity regulations (40 CFR part 93). During a conformity lapse, MPOs can prepare an interim metropolitan transportation plan as a basis for advancing projects that are eligible to proceed under a conformity lapse. An interim metropolitan transportation plan consisting of eligible projects from, or consistent with, the most recent conforming transportation plan and Transportation Improvement Program may proceed immediately without revisiting the requirements of this section, subject to interagency consultation defined in 40 CFR part 93. An interim metropolitan transportation plan containing eligible projects that are not from, or consistent with, the most recent conforming transportation plan and Transportation Improvement Program must meet all the requirements of this section.

A maintenance plan is not required in this airshed based on Section 185A of the Clean Air Act Amendments and the State Implementation Plan.


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FLORIDATRANSPORTATIONPLANThe 2060 Florida Transportation Plan was adopted in 2010 and creates a shared vision for the future of transportation in Florida and the goals, objectives and strategies to achieve this vision over the next 50 years.

Goal: Invest in transportation systems to support a prosperous, globally competitive economy

Maximize Florida’s position as a strategic hub for international and domestic trade, visitors and investment by developing, enhancing, and funding Florida’s Strategic Intermodal System.

Improve transportation connectivity for people and freight to establish emerging regional employment centers in rural and urban areas.

Plan and develop transportation systems to provide adequate connectivity to economically productive rural lands.

Invest in transportation capacity improvements to meet future demand for moving people and freight.

Be a worldwide leader in developing and implementing innovative transportation technologies and systems.

Goal: Make transportation decisions to support and enhance livable communities

Develop transportation plans and make investments to support the goals of the Florida Transportation Plan and other statewide plans, as well as regional and community visions and plans.

Coordinate transportation investments with other public and private decisions to foster livable communities.

Coordinate transportation and land use decisions to support livable rural and urban communities.

Goal: Make transportation decisions to promote responsible environmental stewardship

Plan and develop transportation systems and facilities in a manner which protects and, where feasible, restores the function and character of the natural environment and avoids or minimizes adverse environmental impacts.

Plan and develop transportation systems to reduce energy consumption, improve air quality, and reduce greenhouse gas emissions.

Goal: Provide a safe and secure transportation system for all users

Eliminate fatalities and minimize injuries on the transportation system.

Improve the security of Florida’s transportation system.

Improve Florida’s ability to use the transportation system to respond to emergencies and security risks.

Goal: Improve mobility and connectivity for people and freight

Expand transportation options for residents, visitors and businesses.

Reinforce and transform Florida’s Strategic Intermodal System to provide multimodal options for moving people and freight.

Develop and operate a statewide high speed and intercity passenger rail system connecting all regions of the state and linking to public transportation systems in rural and urban areas.

Expand and integrate regional public transit systems in Florida’s urban areas.

Increase the efficiency and reliability of travel for people and freight.

Integrate modal infrastructure, technologies, and payment systems to provide seamless connectivity for passenger and freight trips from origin to destination.


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STATEPLANNINGREQUIREMENTSThe state planning principles to be considered in the LRTP: preserving the existing transportation infrastructure; enhancing Florida’s economic competitiveness; and improving travel choices to ensure mobility.

Table 8 summarizes the state planning requirements and how they addressed in this plan.


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Table 8. State Planning Requirements


Each MPO must develop a long‐range transportation plan that addresses at least a 20‐year planning horizon. The plan must include both long‐range and short‐range strategies and must comply with all other state and federal requirements. The prevailing principles to be considered in the long‐range transportation plan are: preserving the existing transportation infrastructure; enhancing Florida’s economic competitiveness; and improving travel choices to ensure mobility. The long‐range transportation plan must be consistent, to the maximum extent feasible, with future land use elements and the goals, objectives, and policies of the approved local government comprehensive plans of the units of local government located within the jurisdiction of the MPO Each MPO is encouraged to consider strategies that integrate transportation and land use planning to provide for sustainable development and reduce greenhouse gas emissions. The approved long‐range transportation plan must be considered by local governments while developing the transportation elements in local government comprehensive plans and any amendments thereto.

The plan addresses a 22‐year horizon. Long‐range and short‐range strategies such as TSM&O were considered. The prevailing principles were adopted as part of our goals and objectives. Future land use forecasts were made in consultation with local governments and adopted by the North Florida TPO. Two land use scenarios were developed during the planning process. The North Florida TPO adopted a livability policy as part of the plan and Active Transportation strategies including Context Sensitive Solutions were identified. The approved long‐range transportation plan was developed through coordination with local governments and is consistent with the local government land use plans and capital improvement programs.

(a) Identify transportation facilities, including, but not limited to major roadways, airports, seaports, spaceports, commuter rail systems, transit systems, and intermodal or multimodal terminals that will function as an integrated metropolitan transportation system. The long‐range transportation plan must give emphasis to those transportation facilities that serve national, statewide or regional functions. The plan must consider the goals and objectives identified in the Florida Transportation Plan as provided in s. 339.155. If a project is located within the boundaries of more than one MPO, the MPOs must coordinate plans regarding the project in the long‐range transportation plan.

A comprehensive evaluation of all regional multimodal needs was conducted as part of the planning process. As documented in this report, an inventory of major roadways, transit, multimodal and intermodal facilities, pedestrian walkways and bicycle facilities, and intermodal connectors. No projects identified in the plan are located in another metropolitan area.


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(b) Include a financial plan that demonstrates how the plan can be implemented, indicating resources from public and private sources which are reasonably expected to be available to carry out the plan, and recommends any additional financing strategies for needed projects and programs. The financial plan may include, for illustrative purposes, additional projects that would be included in the adopted long‐range transportation plan if reasonable additional resources beyond those identified in the financial plan were available. For the purpose of developing the long‐range transportation plan, the MPO and the department shall cooperatively develop estimates of funds that will be available to support the plan implementation. Innovative financing techniques may be used to fund needed projects and programs. Such techniques may include the assessment of tolls, the use of value capture financing, or the use of value pricing.

A financial plan was prepared that included alternative revenue sources. While developing the plan, alternatives for additional financing beyond those that are currently in place were not advanced to the Cost Feasible Plan. Toll revenues anticipated to be available to fund the future First Coast Expressway were also estimated.

(c) Assess capital investment and other measures necessary to:

1. Ensure the preservation of the existing metropolitan transportation system including requirements for the operation, resurfacing, restoration, and rehabilitation of major roadways and requirements for the operation, maintenance, modernization and rehabilitation of public transportation facilities; and

Goals and objectives associated with the preservation of the existing transportation system were included. The anticipated costs for operations and maintenance of the state and local transportation systems are documented in the plan.

2. Make the most efficient use of existing transportation facilities to relieve vehicular congestion and maximize the mobility of people and goods.

TSM&O strategies and a dedicated funding source for these projects were identified.

(d) Indicate, as appropriate, proposed transportation enhancement activities, including, but not limited to, pedestrian and bicycle facilities, scenic easements, landscaping, historic preservation, mitigation of water pollution due to highway runoff, and control of outdoor advertising.

Pedestrian and bicycle improvements are addressed in the plan as part of the Active Transportation discussion. Dedicated funding was set aside for bicycle and pedestrian projects. Projects that are candidates for context sensitive solutions and transit accessibility and mobility enhancements are also identified.

(e) In addition to the requirements of paragraphs (a)‐(d), in metropolitan areas that are classified as nonattainment areas for ozone or carbon monoxide, the MPO must coordinate the development of the long‐range transportation plan with the State Implementation Plan developed pursuant to the requirements of the federal Clean Air Act.

Not applicable.


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In the development of its long‐range transportation plan, each MPO must provide the public, affected public agencies, representatives of transportation agency employees, freight shippers, providers of freight transportation services, private providers of transportation, representatives of users of public transit, and other interested parties with a reasonable opportunity to comment on the long‐range transportation plan. The long‐range transportation plan must be approved by the MPO

The North Florida TPO, Technical Coordinating Committee and Citizens Advisory Committee were consulted through the plan development. These boards include representations of all users. A project steering committee was also established which included additional members. The participation of these interest groups is documented in greater in the section on public involvement.

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path forward 2040 long range transportation plan - technical memorandum #2 goals and objectives

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