Federal Highway Administration

FY 2002 Performance Plan

and

FY 2000 Performance Report

Budget Submission Draft

Table of Contents

Introduction

Our Nation is held together by the most extensive transportation network in history. The highway system connects people to jobs, hospitals, places of worship, cultural and sporting events, national parks, and to family members across the country. It also provides a vital link in our country's economic development and national defense - connecting manufacturers to retailers, farms to markets, military installations to deployment stations and shippers to seaports, airports and railroads

The Federal Highway Program: Throughout its history, the Federal Highway Administration (FHWA) has met the ongoing challenge of adapting to the changing times. With the Interstate System essentially complete, our focus has turned toward the post-Interstate era. Through the landmark Intermodal Surface Transportation Efficiency Act of 1991 (ISTEA) and its 1998 successor, the Transportation Equity Act for the 21st Century (TEA-21), our emphasis has been updated to meet the demands of an increasingly urban, mobile, diverse, and prosperous society

In addition to preserving the taxpayers' investment in the Interstate System, the FHWA is working with its partners in the State transportation departments to improve the larger National Highway System (NHS) of 160,000 miles. The NHS includes the Interstate System and other roads of national importance, such as roads important for national defense and highway connectors to intermodal facilities.

The Federal-Aid Highway Program, begun in 1916, operates today with a budget of nearly $30 billion a year. Our varied funding programs include financial aid for nearly 1 million miles of roadways, as well as bridges, ferries, traffic operations centers, transit, recreational trails, bicycle facilities, pedestrian facilities, scenic byways, and historic transportation facilities. Now State and local officials can select the best mix of projects to address their unique transportation challenges.

We also continue our historic role, dating to the 1910's, of helping Federal land management agencies develop, preserve, and improve transportation access to Federal lands. The Federal Lands Highways Program, authorized at more than $700 million a year, provides planning, design, and construction support for forest highways, parkways, park roads, Indian reservation roads, refuge roads, and other Federal roads.

Transportation research and development is crucial to the future of our highway system. We operate a world-class research laboratory, the Turner-Fairbank Highway Research Center in McLean, Virginia. Working with our public and private partners, the FHWA is identifying research needs, coordinating and conducting studies and, most importantly, sharing results around the world. The objective of our research is to provide better, safer, longer lasting, more environmentally sound, and less costly transportation products.

Another important function is more efficient operations though ITS technologies for advanced traffic operations, communications, vehicle detection, and camera technologies to provide real-time travel information. FHWA will expand its emphasis on operations to provide solutions to many of the challenges of the 21st century.

The Highway Trust Fund: The Federal Highway Trust Fund (HTF) is the principal source of funds for Federal surface transportation programs. Established by the Highway Revenue Act of 1956, and extended periodically through subsequent legislation, the HTF receives revenues from excise taxes on gasoline, diesel, and other motor fuels, as well as several excise taxes related to heavy trucks. The HTF has two accounts: Highway and Mass Transit. The programs of FHWA are supported by the Highway Account

Program Activity: The Transportation Equity Act for the 21st Century and prior highway authorization acts provide for the apportionment and allocation of funding to the States in the form of contract authority. This allows the FHWA to enter into project agreements with States in advance of appropriations providing for cash reimbursements. The obligation of Federal funds constitutes the Federal government's commitment to pay a State for the Federal share of a project's cost, and occurs when a project is approved and a project agreement is executed. Annual spending is regulated through obligation limitation, which, in simplest terms, says that only a certain percent  of each dollar may be spent, or "obligated." This limitation allows Congress to respond to changing budgetary conditions while assuring continuity of the program. Reimbursements, or cash outlays, occur upon request by a State after costs have been incurred

The FHWA, in partnership with the State, local and private transportation communities, is preparing for the future. Our vision is to create the safest, most efficient and effective highway intermodal transportation system in the world for the American people—a transportation system where everyone has access within and beyond their community and to the world; a transportation system where crashes, delays, and congestion are significantly reduced; a transportation system where freight moves easily and at the lowest costs across towns, States, and international borders; a system which does not degrade the human and natural environment; a system that supports our country's national defense mobility; and a system where essential transportation services are restored immediately after disasters and emergencies.

We carry out this mission by providing leadership, expertise, resources and information in cooperation with our partners to enhance the country's economic vitality, quality of life, and environment.

For more than 100 years FHWA has concentrated on building and repairing the highway infrastructure. In the last decade of the 20th Century, FHWA's role expanded dramatically and is now reflected in six strategic goals, Safety, Mobility, Productivity, Human and Natural Environment, National Security, and Organizational Excellence

Our goals are fully aligned with DOT's strategic goals, and our progress in achieving them will contribute to the overall transportation goals of the Nation.

Safety: Continually improve highway safety

Safety on our highways is our top priority. Tragically, more than 41,000 Americans die, and 3.2 million are injured in motor vehicle accidents on our highways each year. As more people travel more miles on the highways and as the demographics of our driving population change, significant improvements in highway safety are essential to continue our progress in reducing highway fatalities and injuries. Safety is a key objective in all our programs and activities.

Mobility: Continually improve the public's access to activities, goods, and services through preservation, improvement, and expansion of the highway transportation system and enhancement of its operations, efficiency, and intermodal connections

Mobility, as much as any other factor, defines us as a Nation. Almost 90 percent of all personal transportation takes place on highways. It connects people with work, school, community services, marketplaces, and each other. By connecting air, transit, rail, and port facilities and terminals, highways are the backbone of the Nation's intermodal transportation system.

Through this goal, we provide national leadership for continually improving the quality of our infrastructure and its operations. We research longer-life pavements, build more environmentally-friendly facilities, and use better techniques for reconstructing highways that minimize delays and maximize the capacity of our existing highways by improving operations of existing facilities.

Productivity: Continuously improve the economic efficiency of the Nation's transportation system to enhance America's position in the global economy

Transportation accounts for nearly 11 percent of our Nation's gross domestic product. In our increasingly intermodal transportation network, highways are crucial in almost all freight movements, serving as connectors to water, rail, and air facilities. Approximately 70 percent of all freight is transported over our highways.

Despite the fact that the United States has one of the best long-distance highway networks, capacity problems, especially in large urban areas, are reaching critical proportions. At an average hourly operating cost of $40 to $60 for long-haul vehicle operations, disruptions can be costly to carriers and shippers— and ultimately, to the consumer.

Human and Natural Environment: Protect and enhance the natural environment and communities affected by highway transportation

Transportation has major effects on our quality of life—where we choose to live and how we get to jobs, services, shopping, and recreation. FHWA enhances the community and social benefits of transportation by supporting welfare-to-work, mobility for people with low incomes, and accessibility for people with disabilities. FHWA also helps reduce the adverse effects of transportation on the natural environment by protecting wetlands, air quality, water quality, endangered species, and habitat.

National Security: Improve the Nation's national defense mobility

The FHWA is committed to improving the Nation's national defense mobility by improving the capacity and operation of the highway system. Highways are critical links for mobilizing and deploying military forces from U.S. bases to railheads, seaports, and airports.

Sometimes, an emergency or destruction by natural disaster goes beyond local and State capabilities. In these situations, the Federal Government is called upon to help. The Federal Government provides State and local governments with personnel, technical expertise, equipment, and other resources.

Organizational Excellence: Advance FHWA's ability to manage for results and innovation

The FHWA Organizational Excellence goal recognizes and provides greater attention to the connection between how an organization operates and the results, i.e. outcomes, it is able to achieve. The new Organizational Excellence goal emphasizes not only the importance of quality management but also the importance of measuring how we do business in order to continuously improve our performance.

FHWA's Corporate Management Strategies (CMS) serve as internal guidance designed to enable us to effectively and efficiently achieve our strategic goals. The CMS are based on the seven universally accepted criteria that comprise the Malcolm Baldrige and President's Quality Award criteria. These criteria are the strategies of the FHWA Quality Journey.

Leadership: Strengthen the FHWA Leadership System, through training and other developmental initiatives, for the agency's new organizational structure

FHWA leaders are responsible for leading the FHWA Quality Journey and for carrying out its Corporate Management Strategies. Leaders set the vision and direction, ensure accountability, and provide the resources to deliver the products and services to our customers in an excellent and timely manner.

Strategic Planning:Translate strategies into unit, division, team, and individual action plans with performance measures based on the strategic objectives and performance goals

Strategic Planning is essential to the long term viability of the Agency. FHWA Leadership uses the Strategic Plan to set the direction for the Agency, to prepare annual performance plans, and to allocate resources for attaining our strategic goals. The Plan is deployed throughout the Agency to the unit, division, team, and individual level.

Customer/Partner Focus: Identify customer and partner needs and measure their level of satisfaction

FHWA achieves success through extensive cooperation and partnering with State and local transportation agencies. We receive and act upon feedback from customer surveys, listening sessions, focus groups and other learning techniques. We use that information to improve products and services to ensure customer and partner needs are met.

Information and Analysis: Identify and develop key business information systems that meet and track DOT and FHWA strategic goals

FHWA needs information to support key processes and improve performance. Leaders create an environment in which knowledge, as a key asset of the organization, is managed, shared, and used effectively.

Human Resource Development and Management: Increase employee technical competence, authority and the tools needed to meet agency and customer needs

FHWA's successful performance depends on a work force with skills aligned with the Agency's objectives. We continue to develop and utilize the full potential of our human resources and to create an environment conducive to performance excellence and personal and organizational growth.

Process Management: Design, manage, and improve key processes to achieve better performance

FHWA uses customer-focused support, service and delivery processes to continually improve performance and enhance our products and services. We utilize employee appropriate feedback mechanisms and assessments from customers and partners.

Business Results: Develop critical FHWA business metrics to measure the overall quality of processes and services and report results

We will use customer feedback and benchmark high-performance organizations to continuously improve our overall performance for our customers.

Safety

Highway-related crashes, injuries, and fatalities take a heavy personal toll on American families and cost the Nation's economy more than $150 billion annually. Over 41,000 Americans died in 2000 and over 3.2 million were injured as a result of motor vehicle crashes.

Performance Goal: Reduce the rate and number of highway-related fatalities and injuries. In FY 2002, FHWA's goal is to reduce the rate of highway-related fatalities to 1.4 per 100 million vehicle miles traveled and reduce the rate of injuries to 111 per 100 million vehicle miles traveled. These fatality and injury rate reduction performance goals are shared with the National Highway Traffic Safety Administration (NHTSA).

In seeking to achieve the overall U.S. DOT goal regarding numbers of fatalities and injuries by the year 2008 [33,500 and 2,809,000, respectively], we are setting an FY 2002 benchmark of reducing the number of highway fatalities to 38,907 and reducing the number of highway injuries to 3.09 million.

Performance Measures and Benchmarks:

• Highway-related Fatalities per 100 million VMT
  
• Number of Highway-related Fatalities
  
• Highway-related Injuries per 100 million VMT
  
• Number of Highway-related Injuries (millions)

External Factors: Vehicle travel is expected to grow at approximately 2 percent per year. Fluctuations in VMT, as happened in 2000 when VMT did not grow, will affect fatality and injury rates. Lane mileage has increased less than ½ of 1-percent per year in recent years, which means more and larger vehicles will be competing for limited road space. In addition, the highest risk population groups—older drivers and drivers aged 15 to 24—will grow at faster rates than the overall population. In response to these and other external factors, FHWA works with other organizations such as NHTSA and the National Association of Governors' Highway Safety Representatives (NAGHSR) to assure that a comprehensive approach to highway traffic safety is taken at the National, State, and local levels.

2000 Results: Based on preliminary estimates (as of March 2002), DOT met neither the highway fatality nor injury rate target. The estimated 41,800 fatalities in 2000 increased slightly (0.5%) from the 1999 total of 41,611.

This creates a challenging situation for FHWA and other modal agencies within the U.S. DOT, as we continue to focus on programs and policies that can further drive these unacceptable numbers downward.

Congress passed legislation to transfer FHWA's motor-carrier safety functions to the Federal Motor Carrier Safety Administration (FMCSA) as of January 1, 2000. As a result, FHWA no longer tracks indicators specific to large truck safety. We will continue to work closely with the FMCSA. Our efforts to reduce the occurrence and mitigate the consequences of crashes benefit all highway users.

FY 2001 Performance Plan Evaluation: As stated in the "2000 Results" section, long-term reductions in fatalities and injuries appear to be leveling off. This situation presents serious challenges to achieving continuing progress in improving highway safety, and FHWA is responding aggressively through advancing programs that address leading causes of fatalities and injuries. For FY 2001, FHWA is directing resources to the focus areas of run-off-road crashes, speed-related crashes, intersection crashes, and pedestrian / bicyclist crashes. Further, in cooperation with the NHTSA, FHWA will also continue to support programs to increase seat belt use and reduce alcohol-impaired driving. In delivering these programs, FHWA will continue to work with the States to identify State-level opportunities to influence the National trends.

Strategies and Initiatives to Achieve 2002 Goal: As pointed out above, FHWA and U.S. DOT share a challenging task in advancing our highway safety objectives. While we should recognize the reductions in rates of fatalities and injuries to which U.S. DOT programs have contributed, the safety community needs to intensify its focus on problem areas and efforts to pursue appropriate countermeasures. To further reduce crashes, injuries, and fatalities, attention must be placed on target crash types that most affect fatalities and injuries.

To carry this approach forward, FHWA will focus on a set of infrastructure and operations topics that most affect fatalities on America's roadways. This is part of a comprehensive approach in which NHTSA focuses attention on issues such as driver training, prevention of impaired driving, and increasing the use of seat belts, and FMCSA carries out programs aimed at commercial motor carriers and drivers. In many of these areas, FHWA works in close partnership with NHTSA, NAGHSR, the American Association of State Highway and Transportation Officials (AASHTO), and the National Association of County Engineers (NACE). For each of these topics, we seek to expand implementation of proven countermeasures and to develop and improve products which use advanced technology. We are actively investigating Intelligent Transportation Systems (ITS) technologies, including Intelligent Vehicle Initiative (IVI) elements, and deploying these products where appropriate.

The focus areas that FHWA will concentrate on include:

Single-Vehicle Run-off-the Road (ROR) Crashes - Typically caused by inattention, drowsiness, or avoidance maneuvers, ROR crashes are a contributing cause for 38% of fatalities. FHWA's two - pronged approach will concentrate efforts on both keeping vehicles within the roadway travel lane and minimizing harmful effects when vehicles do leave the roadway. Major initiatives relating to ROR crashes include improving pavement skid resistance, increasing the visibility of signs and pavement markings, increasing the use of rumble strips (where appropriate), upgrading roadside safety hardware (i.e., guardrail, crash barriers), improving design practices, and mitigating effects of utility poles and other roadside hazards.

Intersections - Extensive work will be devoted to development of a comprehensive program to address crashes at or near intersections, which account for 23% of fatalities. Significant efforts in areas such as red-light-running, road safety audits, and intersection design are underway, and significant increases to address this overall issue are planned. In addition, intersection safety benefits from several related initiatives, such as speed management and pedestrian-oriented efforts, which are being undertaken jointly between FHWA and NHTSA.

ITS/IVI products and technologies that hold strong promise to address intersection crashes are under development.

Speed-Related Crashes - Speed contributes to 30% of fatalities, and FHWA and NHTSA work together on a comprehensive Speed Management Team. FHWA's activities will be focused in two main areas: 1) Promotion of variable speed limits, which use ITS tools for gathering speed and volume, weather, and road surface information to determine appropriate speeds at which drivers should be traveling given current conditions, and 2) Promotion of reasonable and safe posted (static) speed limits that are enforceable and accepted by the driving public as being set on a rational basis. We also conduct outreach to both the technical audience and the general public on speeding and its implications.

Pedestrian / Bicycle Safety - The U.S. DOT supports making the Nation's roads safer for all road users, including bicyclists and pedestrians, who account for 13% of fatalities. FHWA and NHTSA will work with our partners to increase safe walking and bicycling by focusing on integrating pedestrian and bicyclist issues in the planning and design of facilities, researching and developing comprehensive countermeasures and appropriate tools and technologies, and implementing key recommendations from experts. FHWA will continue efforts to provide engineering and ITS approaches to increase the safety of bicyclists and pedestrians and accelerate the deployment of processes, tools and technologies to the State and local communities through showcasing, operational tests and evaluations, and public outreach campaigns.

In addition to the four priority topic areas above which address specific crash types, FHWA will advance initiatives which improve overall safety design and management processes through efforts including:

• Promoting Safety Management Processes - FHWA will facilitate the implementation of comprehensive safety management processes with Federal, State and local governments, Federal Land Management Agencies, Metropolitan Planning Organizations, and the commercial transportation industry.
  
  
• Safety in the Planning Process – Incorporating safety within State and local planning and programming processes was a required element of TEA-21, and FHWA is actively developing guidance on best practices and information on analysis tools that can be easily used by the planning community. These efforts will continue and advance in FY 2002.
  
  
• Safety Data and Analysis Systems – FHWA will work with our partners and stakeholders to develop information and analysis systems to better identify the causes of crashes and aid in the development of countermeasure designs that will reduce the number and severity of crashes. To aid in our internal development of “high-payoff” programs, we will investigate development of performance measures for each of the crash-type focus areas, so that we can determine our success in addressing these issues on a continuing basis.
  
  
• Advancement of Intelligent Transportation System (ITS) and other Advanced Technologies – The FHWA's long-term strategy is to approach highway safety improvements in a systematic manner that considers technology and human factors issues. Advances in ITS technologies, along with continued safety improvements to the overall roadway environment, will be a key part of safety initiatives.
  
  
• Focusing on Outreach and Partnerships – FHWA continues to advance our outreach and partnerships with others throughout the highway safety community to ensure that a comprehensive approach is taken in our efforts to reduce fatalities and injuries.

Other Federal programs with common outcomes: Within the U.S. DOT, FHWA works closely with NHTSA and FMCSA toward the common objectives of reducing highway crashes, fatalities, and injuries. To both support these objectives and carry out highway safety efforts throughout the Federal government, FHWA also coordinates with a number of non-U.S. DOT agencies. These agencies include the:

• National Academy of Sciences: The NAS, usually through the Transportation Research Board (TRB), supports key program areas through the creation of expert panels and committees that provide essential perspective and advice.
  
  
• National Transportation Safety Board: The NTSB helps identify infrastructure enhancements to improve highway safety, and provides recommendations on program improvements.
  
  
• Department of the Interior: As the highway system provider for the National Park Service and Bureau of Indian Affairs, FHWA coordinates safety improvement for National Park and Native American Government roadway systems.

Program Evaluation: In FY 2001, FHWA will evaluate selected highway safety improvement programs using a combination of longitudinal and cross sectional methodologies and benefit/cost analysis.

Mobility

The National Highway System (NHS) consists of only 161,117 miles of rural and urban roads—just 4 percent of total highway miles—but carries 1 trillion or 43 percent of vehicle miles traveled (VMT). The system serves major population centers, international border crossings, intermodal transportation facilities and major travel destinations. The condition of this system can affect wear-and-tear on vehicles, fuel consumption, travel time, congestion and comfort, as well as public safety. Improving the pavement condition is also important to the long-term structural integrity and cost effectiveness of the transportation system.

Performance Goal: In 2000 the performance goal of 93 percent of the NHS pavements with acceptable ride quality (IRI = 170 in/mi) was met. The performance goal for pavement condition has been revised to more closely address mobility. NHS condition is now being evaluated in light of the vehicle miles traveled on the pavement. In FY 2002, our goal is to improve the condition of the NHS, to increase the percent of vehicle miles traveled on pavements with acceptable ride quality (IRI = 170 in/mi) to 92 percent.

Performance Measure/Target: Percentage of vehicle miles traveled on NHS pavements with acceptable ride quality (IRI < or = 170 in/mi), in 2002 – 92%.

External Factors: Growth in the U.S. economy has translated into over 2% annual growth in VMT. While this level of growth did not occur in 2000, it is too soon to tell if this is a change in the trend. In addition, industry's demand for heavier and longer trucks has increased pavement deterioration. A significant proportion of the NHS is over 20 years old and nearly all of the system was designed to sustain loadings that have been exceeded for some time.

2000 Results: 1999 data for NHS pavement condition showed 93.0 percent of the pavements had acceptable ride quality. Since this met the goal set for FY 2008, a team was charged with assessing the performance goal. The revised goal is designed to more accurately reflect mobility by including the percent of vehicle miles traveled on NHS pavements with acceptable ride quality (IRI < or = 170 in/mi).

The focus of this measure of pavement performance is smoothness. Adopting more effective construction and maintenance methods and applying “best practices” in pavement management can improve pavement smoothness. In 1999, FHWA began a Pavement Smoothness Initiative to get the results of Research and Development and "best practices" in pavement construction and management to State DOTs and others involved in the construction and maintenance of highways. Pavement smoothness packages for both asphalt and Portland Cement Concrete pavements have been prepared. More than 3000 copies were distributed nationwide. These packages include videotapes by volunteer celebrity spokespersons Richard Petty, for asphalt pavements, and John Madden, for concrete pavements. Over 40 workshops were held to promote smoother pavement construction. Model specifications have been developed to assist State departments of transportation in improving pavement construction practices.

FHWA is also promoting pavement preservation nationwide. This initiative will result in improved pavement smoothness, extended pavement life, and reduced life cycle cost. Efforts are also underway to promote pavement preservation practices to extend pavement life and improve condition. Work is also underway with the States to improve pavement condition measurement practices and equipment. This effort will increase the reliability of the data on which decisions on for pavement preservation and rehabilitation are based.

FY 2001 Performance Plan Evaluation: Due to the significant increase in investment in pavement preservation and rehabilitation from the increased funding made available in TEA-21, and efforts to improve pavement condition, the ride quality of NHS pavements has improved faster than anticipated allowing us to reach 93% of the NHS with acceptable ride quality in 1999.

A revised goal has been established. To better recognize customer focus, the revisions address users in addition to pavement condition by incorporating vehicle miles traveled on NHS pavements into the goal. In addition to reducing the mileage of the NHS with unacceptable ride quality, the revised plan also increases good ride quality pavements (IRI < 95 in/mi).

Strategies and Initiatives to Achieve 2002 Goal: FHWA partners with State and other authorities to promote infrastructure development and improvement through direct funding, grants, and technical assistance and advances in construction, rehabilitation, maintenance, preservation, materials and management technology. FHWA technology deployment initiatives, in partnership with the States and industry, ensure advancements in pavement practices and high performance materials are adopted to improve the performance of NHS pavements. Initiatives to promote construction of smoother, longer lasting pavements and preservation that extends pavement performance will be continued. Innovations will be developed and delivered as they become available.

• The FHWA Federal-aid Program provides funds for projects that improve NHS pavement condition through rehabilitation and pavement preservation. Most of the funding for these projects comes from the NHS and Interstate Maintenance (IM) programs. Over $6 billion in NHS funds and over $5 billion in IM funds will be obligated in FY 2002.
  
  
• The FHWA asphalt pavement technology program is optimizing materials selection to maximize the cost-benefits ratio associated with pavement design and construction. This program is funded at $6.2 million in 2002. Benefits include reduced maintenance, better ride quality, increased pavement life and reduced life cycle cost.
  
  
• Results from evaluation of the effectiveness of using the Superpave system will be shared with States and industry to promote the continued use and development of the system.
  
  
• In cooperation with Division Offices, an evaluation of the resources needed to achieve these revised goals will be undertaken. In addition, an implementation strategy will be developed to assist Divisions in evaluation of NHS pavement condition in their State and in working with the DOT to frame a local strategy for improving pavement condition by addressing unacceptable ride quality sections as well as increasing percentages of good ride quality (IRI = < 95 in/mi) pavements.
  
  
• FHWA will conduct pavement research and development, other than SUPERPAVE, and continue the Long Term Pavement Performance Program (LTPP). Planned activities include: (1) improved concrete pavement for highways, (2) use of LTPP performance data to develop new pavement design and evaluation tools (3) improved technology for specifying, measuring and constructing enhanced pavement ride quality and smoothness, and (4) investigating new techniques to analyze, image and simulate asphalt pavements to identify quality and predict performance.
  
  
• FHWA, in cooperation with the States and the Industry, will continue to promote and publicize the results of the Pavement Smoothness Initiatives. Presentations will be made at regional and national meetings. Videotape presentations have been produced. A promotional display has been prepared promoting the benefits of smoother pavements and best practices for building and preserving them. The display will be used to aid in promoting these practices at technology fairs, State paving conferences, and trade shows.
  
  
• Efforts will be pursued with profile measuring equipment manufacturers to offer equipment for measuring pavement smoothness using the recommended protocols at reduced prices to encourage equipment upgrades and adoption of recommended protocols.
  
  
• In 2002, FHWA, through its Division Offices, will work with State DOT's to improve the quality of the pavement condition data collected.
  
  
• In conjunction with the States and industry, FHWA will work to implement a program of extending pavement life. This activity will advance to practice the concept of the 50-year pavement system.

Other Federal Programs with Common Outcomes: None.

Deficient bridges impair the public's access to activities, goods and services. The National Highway System (NHS) includes approximately 114,000 bridges serving major population centers, international border crossings, intermodal transportation facilities and major travel destinations. Approximately 30.8 percent of the deck area on these bridges (for all average daily traffic (ADT)) is either structurally deficient or functionally obsolete (in terms of dimensions, load, or other characteristics). Of the approximately 472,000 non-NHS bridges identified in the National Bridge Inventory (NBI), 32.6 percent of the deck area (for all ADT) is considered to be deficient.

Performance Goal and Result: In FY 2002, improve the condition of NHS and non-NHS bridges taking into account deck area and ADT. (Improve NHS deficient bridges' deck area to 28.9 percent; and improve non-NHS bridges' deficient deck to 31.2 percent.)

Performance Measure/Target: Percentage of NHS Bridges' deck area classified as deficient for all ADT (structurally deficient or functionally obsolete)

Percentage of non-NHS Bridges' deck area classified as deficient for all ADT (structurally deficient or functionally obsolete)

External Factors: Growth in the U.S. economy has translated into over 2% annual growth in vehicle miles traveled, increasing the stress on bridges. While this level of growth did not occur in 2000, it is too soon to tell if this is a change in the trend. In addition, increases in truck traffic and the aging of our infrastructure contribute to the deficiencies in our Nation's bridges.

2000 Results: According to our 2000 NBI data, the percentage of deficient NHS bridges was 21.5%, exceeding the FY 2000 target of 22.5%. This 1.5% decrease between 1999 and 2000 is primarily due to improved data collection for the NHS. Prior to 1995, NHS data was collected based upon FHWA's best estimate, by functional classification, of the number of bridges located on the NHS. In 1995, a data item was added to the NBI that tracked the NHS bridges. The new data item was fully populated by the States in the year 2000 NBI submittal. This resulted in a more accurate tracking of the NHS bridges. As a result of the improved accuracy of our data, the actual number of NHS bridges decreased significantly. Because it was apparent we would be accomplishing our original target early, FHWA began to determine a revised goal that more directly relates to mobility.

FY 2001 Performance Plan Evaluation: Based on program performance in FY 2000, the targets established for FY 2001 of improving the condition of the nation's bridges will need to be adjusted to reflect the improved data in the NBI. In addition the FHWA is reviewing this particular performance goal and measure to assure that we are on track and measuring the right indicator in regards to the nation's mobility.

Strategies and Initiatives to Achieve 2002 Goal: A primary strategy for FY 2002 will be to obtain buy-in from all the Division Offices and Resource Centers, customers, stakeholders and partners for this new performance goal and measure. This will be done through information provided from the Office of Bridge Technology to our Divisions/Resource Centers; briefings to AASHTO and our partners and simple explanations of the validity of the new measure relative to the way projects are planned. FHWA's division offices will need to become more familiar with their NBI data in regards to its implications for mobility. The Office of Bridge Technology and the Turner Fairbank Highway Research Center will be providing detailed analyses of the NBI data for each State. Strategies and initiatives will be devised to work with the States on improving the condition of bridges that most heavily impact the mobility of the American public. The following national targets have been set to improve the condition of NHS and non-NHS bridges taking into account ADT:

1. On NHS routes with an ADT more than 50,000, improve deficient bridges' deck area from 44.5% in 1998 to 27.4% by 2008. The target for 2002 is 38.4%.
   
   
2. On NHS routes with an ADT of zero to 50,000, improve deficient bridges' deck area from 29.1% in 1998 to 20.8% by 2008. The target for 2002 is 25.3%.
   
   
3. On non-NHS routes with an ADT more than 10,000, improve deficient bridges' deck area from 47% in 1998 to 32.1 by 2008. The target for 2002 is 41.3.%
   
   
4. On non-NHS routes with an ADT of zero to 10,000, improve deficient bridges' deck area from 29.9% in 1998 to 25.5% by 2008. The target for 2002 is 28.2%.

FHWA will continue to provide technical assistance and funding to States for bridge replacement and rehabilitation. In addition, all regulations and policies pertaining to the bridge programs will be reviewed and recommendations provided, where feasible, to increase flexibility in the use of bridge funds for system preservation and bridge management system initiatives. FHWA will work with States and other partners in both the public and private sector to improve management of bridge assets. FHWA will focus research on improving the technology of bridge construction, repair and maintenance. FHWA technology deployment initiatives will support the adoption of advancements in high performance materials and seismic retrofit techniques that improve the performance of bridges.

• The FHWA Federal-aid Highway programs provide funds for projects that improve the condition of NHS and non-NHS bridges. Through the Highway Bridge Replacement and Rehabilitation Program, $4.4 billion will be provided in FY 2002.
  
  
• The Surface Transportation Research program provides durable structural materials, nondestructive evaluation technologies for condition assessment in support of bridge management and technical assistance, all of which lead to extended bridge service life. A total of $9.4 million is requested for these activities in FY 2002.
  
  
• Innovative bridge research supports the deployment of innovative materials which are more durable and resistant to traffic loads and corrosive attack, resulting in less maintenance and traffic restriction. The FY 2002 innovative bridge construction program demonstrates the application of innovative materials on selected bridges.

Other Federal Programs with Common Outcomes: None.

FHWA is committed to excellence in service to its customers and partners. It is important to understand highway users' perceptions of how well highways, as part of the Nation's intermodal transportation system, meet their needs.

Performance Goal:In FY 2002, increase overall user satisfaction with the Nation's highway systems to 70%.

2000 Results:The level for Overall Highway User Satisfaction increased from 50% to 66%, according to the Bureau of Transportation Statistics Omnibus Survey. The top 3 stated priorities for improvement based on the 1995 and 2000 survey are shown in the chart below:

FY 2001 Performance Plan Evaluation: No changes are proposed at this time, with the exception of possibly using two identical questions on Overall Satisfaction in 2002 Survey (one question to be asked at the beginning of each interview and the follow-up question to be asked at the end of the interview).

Strategies and Initiatives to Achieve 2002 Goal:

• 2002 Satisfaction Survey
  
  
• Satisfaction Improvement Initiatives. These initiatives could include workshops, best-practices guides, community-of-practice websites, training courses, AASHTO and Industry involvement, National Partnership for Highway Quality involvement, etc. Focus areas include:
  • Congestion (Traffic Flow)
  • Work Zone Operations
  • Pavement Conditions
  • Community Oriented Improvements
  • Maintenance Response Time

Congestion is a problem. Over the last two decades, the amount of travel has increased significantly. Growth in roadway capacity however has almost flat-lined at a meager 0.3% a year in the last decade. The costs of congestion are adding up. In 1997, the individual cost of congestion in metropolitan areas exceeded $900 per driver, resulting in over $72 billion in lost wages and wasted fuel. In the near-term, the FHWA will focus on improved, active and real-time operations of the existing transportation system (including accommodations for non-motorized users), which can result in short-term reduction in travel time and delay of between 10-30% depending on a variety of local conditions.

Performance Goal: In FY 2002, slow the projected growth of congested travel from 33.9% to 33.7%, slow the projected growth of travel time from 27.6% to 27.2% and slow the projected growth of traveler delay from 34.5 hours to 34.0 hours.

Performance Measure/Target:

The projected growth of congested travel.

Understanding the table:

The percentage of congested travel measures undesirable traffic congestion. For instance, the 1996 figure tells us 32% of daily travel occurred under congested conditions. Our goal is to slow the growth of congested travel by 0.2% each year. Based on historical trends coupled with a preliminary analysis of 2000 data, we project the rate of increase will be 0.5% per year for 2000-2002. The 2002 target is based upon meeting the 2001 target.

Performance Measure/Target
The projected growth of travel time.

Understanding the table:

The Travel Time Measure addresses the following question – "How much longer does it take me to travel during congested conditions?" The measure focuses on the additional travel time necessary for an individual to make a trip during the peak period(s) because of congestion. For instance, the 1996 figure of 23% indicates the average peak period trip took 23% longer than the same trip in uncongested conditions. Put simply, a 30-minute trip traveling at the posted speed limit(s) in uncongested conditions becomes 36.9 minutes due to congestion. Our goal is to slow the growth of travel time by 0.4% each year. Based on historical trends coupled with a preliminary analysis of 2000 data, we project the rate of increase will be 1% per year for 2000-2002. The 2002 target is based upon meeting the 2001 target.

Performance Measure/Target

The projected growth of traveler delay

Understanding the table:

The graph identifies the average number of hours drivers are stuck in traffic per year. The hours of delay reflect congestion, work zones, incidents and accidents. From 1996, delay increased approximately 1-hour per year. Our goal is to slow the growth of delay time by 30-minutes each year. Based on historical trends coupled with a preliminary analysis of 2000 data, we project the rate of increase will be 1 hour per year for 2000-2002. The 2002 target is based upon meeting the 2001 target.

2000 Results: In the FY 2000 Performance Plan, we used hours of delay per 1,000 vehicle miles traveled (VMT) to measure this goal. This metric attempted to provide a system-wide measure of congestion. However, it represented only one dimension of congestion – delay -- and did not effectively reflect the actual performance of the highway system in places where congestion regularly happens, i.e., the measure showed delay decreasing when in fact congestion was worsening. Moreover, the measure was difficult to interpret by the general public. Based on discussions with our partners and customers, we replaced this indicator with three new measures: Congested Travel, Travel Time, and Traveler Delay. Together, these new indicators will reflect changing travel conditions more comprehensively by focusing on three different aspects of inefficient road performance in a broad collection of urban areas across the nation where congestion regularly occurs. The data supporting the three new measures stem from the Highway Performance Monitoring System (HPMS). The availability of the data is approximately 9 months from the base year, e.g., 2001 actual numbers will not be available from HPMS until Sep/Oct 2002.

In addition to the above efforts, the Federal Highway Administration (FHWA) conducted surveys asking the American public about travel and transportation on the nation's roads. The findings offered many valuable insights across a broad range of topics, e.g., congestion. The results of the survey are located at: http://www.fhwa.dot.gov/reports/movingahead.htm.

External Factors: A variety of State, local, county, and special district stakeholders control the decisions to deploy ITS—a key strategy for supporting the mobility goal. On January 8, 2001, a Federal Highway Administration regulation and a Federal Transit Administration policy were published in the Federal Register. Implementing the regulation and policy will help foster integration of these independent deployments by requiring development of regional ITS architectures. This will help minimize stovepipe deployments that would otherwise compromise the potential benefits of integrated deployments.

FY 2001 Performance Plan Evaluation: Despite the long-term trend of increasing vehicle miles traveled (the 2000 slowdown notwithstanding), we project the intervention of numerous operational programs and strategies will help slow the growth of travel time and delay for our customers. We will monitor our progress through the use of the Highway Performance Monitoring System and Texas Transportation Institute's reporting mechanisms on mobility.

Strategies and Initiatives to Achieve 2002 Goal: Our Strategies and Initiatives work together to support all of the goals and measures under the Strategic Objective "Improve the operation and efficiency of existing surface transportation system." For a description, see "Strategies and Initiatives" under the "User Satisfaction" measure.

Other Federal Programs with Common Outcomes: None.

Although congestion may never be eliminated by operations in the long term, real-time, 24/7 management of the system, with complete information about system conditions given to citizens, can substantially improve reliability and users' ability to plan for “just-in-time” delivery/arrival of people and goods. This is critical when we consider the United States' role in the global economy. Therefore, we will continue to monitor the performance measures listed below while we concurrently develop the ability to collect data for and measure system reliability. A reliability measure depends on continuous (minute by minute) measurement of system speeds which is only possible with automated instrumentation. As the ITS network is put in place, reliability will become a key barometer of this strategic goal.

Performance Goal: Increase system reliability

The FHWA is working with the Texas Transportation Institute in developing reliability measures. In 2001, ten cities were identified with sufficient instrumentation to permit the development of candidate reliability measure(s). We are assessing the following measures:

Percent Variation and Buffer Index: These measures address on-time arrival and include different travel time factors to derive acceptable reliability thresholds. As an example - "To be on-time 95% of the time, I need to allow enough time so that I am not late to work more than one day a month. I may be 5-10 minutes early on some days, but the number of days I'm late is limited to 1 or less."

Exception Index: This index seeks to measure the length of delay of only the worst trips. Translation – "On really bad days, my travel time will be X minutes longer than usual."

We are examining the early results from the initial data gathering effort from the 10 cities. The level of data quality and completeness varies by city.

In 2002, we will add 15-20 additional cities. Consequently, 25-30 of our largest cities will be collecting ITS-based, real-time data.By the end of 2002, FHWA will possess 2 full years of data from the initial 10 cities and 1 year of data from the additional 15-20. During this period, we will have had the opportunity to fully analyze all the data and begin developing specific goals and targets to track within subsequent performance plans.

Performance Measure/Target: System Reliability

Strategies and Initiatives to Achieve 2002 Goal: Our Strategies and Initiatives work together to support all of the goals and measures under the Strategic Objective "Improve the operation and efficiency of existing surface transportation system." For a description, see "Strategies and Initiatives" under the "User Satisfaction" measure.

Other Federal Programs with Common Outcomes: None.

The greatest benefit of improved operations is to the user, in the form of reliable, complete, and timely information. Users want to know their options and feel in control of their mobility, instead of at the mercy of the system. In 2002, we will further analyze the results from FHWA's 2001 traveler surveys to develop a composite measure and develop strategies that are consistent and responsive to those we serve. In addition, we will execute a new survey in 2002 and analyze and present the results in 2003.

Performance Goal: Increase user satisfaction with the operation of the existing system.

Performance Measure/Target: User satisfaction with the operation of the existing system.

External Factors: None.

2000 Results: The Federal Highway Administration conducted a comprehensive Traveler Perception survey in 2000 and collected the following baseline data in 2001. The following information lists some of the key measures regarding highway congestion:

• 65% of those surveyed are satisfied with the major highways they travel most often (up 15 percentage points since 1995), while dissatisfaction has increased by 6 percentage points.
  
  
• Heavy traffic is perceived by the public to be, by far, the most important reason for travel delays (53%). This is twice the number for roadwork and five times the number for either accidents or traffic signals.
  
  
• Two in three respondents indicated highway congestion conditions affected their decisions on when to travel and which roads to use. About 20% of respondents indicated that traffic affected their decisions about where to work and which hours to work, and 30 percent said it affected their decision about where they live now.
  
  
• The public's preferred transportation improvements encourage smarter road management and operation. For example, adopt a strategy of "get in, get out, stay out" for both roadwork and clearing accidents. Plan and execute effectively so the work is done correctly and expeditiously the first time, resulting in less traffic disruption. Also focus on quality improvements and high performing materials to minimize the need for recurring roadwork.

Strategies And Initiatives To Achieve 2002 Goals: We will pursue the following 4 major strategies and initiatives to achieve our Operations-related performance goals:

1. Deploy ITS Infrastructure. The following efforts will be employed to support the integration of intelligent transportation systems into the Nation's surface transportation system: 1) execute a program of research and technology transfer activities, 2) provide both policy guidance and technical support, and 3) use an incentives program that supports the integrated deployment of an ITS infrastructure in metropolitan areas. Specifically, DOT will focus in the following areas to support the acceleration of ITS deployment.
   
   
   • Advance the Development of Regional Architectures. We will support the development of regional architectures through the development of training modules, delivery of training on a nationwide basis, and implementation of service plans focused on small and medium sized metropolitan areas. Our goal is to complete 50 architectures in 2002 and have an additional 50 underway.
     
     
   • Increase Use of Standards. The U.S. DOT ITS Standards Program is working toward the widespread use of standards to encourage the interoperability of ITS systems. Through cooperative agreements with five standards development organizations (SDOs), the Standards Program is accelerating development of about 80 non-proprietary, industry-based, consensus ITS standards, and is encouraging public-sector participation in the development process. We anticipate completing all 80 of the original standards in 2002. We will continue advancing these standards by completing the testing of 10. In addition, we will complete the development of the 5.9 standard.
     
     
   • Advance Deployment of the 511 Traveler Information Number. The DOT will advance the deployment of 511 Traveler Information number by establishing a showcase deployment of 511, issuing twenty-five 511 planning and conversion grants and developing guidelines for use of public information in private travel information services. We expect to see fifteen 511 services operational in 2002.
     
     
   • Complete the National Highway System Information Requirements. We will complete the development and vetting of a standard set of minimum information requirements for the National Highway System.
   
   
   
2. "Raise the Bar" of current operations practice. Raising the state of current operations practice closer to the state of the art will substantially improve traffic flow and reduce crash rates, delay and user frustration. An overarching approach to doing this will be to engage State and local governments in operations self assessments that will raise an awareness that more could be done and help agencies target particular points where their state of practice could improve. In 2002, we have set an internal goal of completing one assessment in each State. Additionally, we will engage in standard technology transfer techniques of state of the art guidance, training, and other technical assistance. This year's initiatives will include: updating incident management guidance, continuing training on the Millennium Manual on Uniform Traffic Control Devices (MUTCD), launching major national outreach on improved work zone operations, and conducting an operational test of emergency preparation and evacuation operations – to name a few.
   
   
3. Build institutional, policy and tool underpinning/capacity for operations mission at the State and local level. The benefits of many operating techniques have been known and demonstrated for many years if not decades. Their implementation (including the enabling ITS infrastructure) has been slow, it is hypothesized, because the underlying institutional structure tends not to support operations as a "core mission." Organizational structures, processes, tools, and measures tend to be focused on projects and capital investment. Under this strategy, we will advance the "institutionalization" of the planning and coalitions necessary to execute the integrated operation of the surface transportation system, the development of planning and decision support tools, and development of operations performance measures. Some major initiatives this year include: developing guidance and training for operations planning, carrying out up to 5 institution building regional workshops, conducting research in Regional Operating Organizations, completing the performance measurement Tool Box for Operations, developing and deploying the TRANSIMS traffic forecasting and analysis tool, and developing guidelines for data collection to support one or more reliability performance measures.
   
   
4. Research, develop, test, and evaluate new operations techniques, technology applications, and tools. We will advance the state of the art with strategic research and development, tests and demonstrations of new applications and techniques and technology, and evaluation. A sample of initiatives this year include: performing operational tests of: Integrated Public Safety Vehicle Dispatching and Public Safety Mobile Data Interchange, and evaluating the value of integrating road weather information into a Transportation Operations or Emergency Operations Center.

Other Federal Programs With Common Outcomes: None.

PRODUCTIVITY

The time that it takes goods to move in this country defines the limitations of the breadth and depth of this nation's economy. As sites of manufacturing become globally mobile, as national economies merge into a world market and as the science of logistics moves from push to pull supply chain management, we will examine the adequacy of the physical system as well as its current operations to meet these changing demands. We will search for infrastructure, technology, and operations improvements that both meet the new demands of logistics and maintain the nation's leadership in the global economy.

These performance parameters have tremendous cost impacts on an industry that has moved almost entirely to just-in-time delivery windows - sometimes as small as 15 minutes.

Performance Goal: In FY 2002, slow the projected growth of congested travel from 33.9% to 33.7%, slow the projected growth of travel time from 27.6% to 27.2%, and slow the projected growth of traveler delay from 34.5 hours to 34.0 hours.

Performance Measure/Target: Trend charts for this performance measure are on page M-8. While the Performance Goal of reducing congestion and delay is carried in both the Mobility and Productivity chapters, the strategies and initiatives to achieve the goal use different programs and offices and serve different constituencies. Please see the discussion of Productivity strategies.

Although freight costs are affected by numerous variables, we nevertheless believe that they provide an overall barometer of the effect of key regulations and legislation. In 2001, we have created a collection and reporting program which assesses data from a reliable sample of motor carriers to determine significant changes in costs per mile of operation. During 1980 to 1997, cost per mile decreased 27% industry-wide. The reduction was attributable to Federal and State deregulation of trucking, uniformity programs for vehicle registration and tax reporting, the pricing flexibility introduced by deregulation, and improvements in vehicle technologies and fuel economy. (Note: Not an exhaustive list.) Conversely, the rise in cost-per-mile after 1997 reflects increases in driver wages (responding in part to national driver shortage), vehicle maintenance, and fuel costs.

Using baseline data, we will track annualized cost-per-mile averages, include performance goal targets, and identify public and private influences on those changes in the FHWA 2002 Performance Plan Revision in September 2001.

Performance Goal: Reduce the cost of highway freight per mile.

Performance Measure/Target: The Cost of Highway Freight per Ton-Mile

Note: Operations' Productivity performance goals work together to address productivity challenges. As such, the External Factors, 2000 Results, FY 2001 Performance Plan Evaluation, and Strategies and Initiatives to Achieve 2002 Goal sections support all of the performance goals and are listed after the "Freight Corridors" performance goal.

Other Federal Programs with Common Outcomes: None.

Our highway gateways to Canada and Mexico can represent many costly hours of delay in the flow of trade as well as several-mile continuous traffic back-ups that are a significant irritant to border crossing communities. In 2000, we gathered baseline data at 3 border crossings (Laredo, TX; Otay Mesa, CA, and Calais, ME). This has permitted testing of initial monitoring design and benchmarking of data. Currently, we are assessing a measure called "hours of delay per commercial vehicle trip." In 2001, we will expand collection to nine crossings, with repeat visits to the initial sites. In 2002, and each subsequent year, we plan to both broaden the site visits and, as feasible, introduce automated collection procedures. Ultimately, we hope to collect data from the approximately 15 crossings that handle the gross majority of cross-border freight shipments. These annual collections will help us identify where resources are needed to facilitate the efficient and effective movement of freight across our national boundaries.

Performance Goal: Reduce the hours of delay per 1000 commercial vehicles processed at NHS border crossings.

Performance Measure/Target: Hours of delay per 1000 commercial vehicles processed at NHS border crossings.

Note: Operations' Productivity performance goals work together to address productivity challenges. As such, the External Factors, 2000 Results, FY 2001 Performance Plan Evaluation, and Strategies and Initiatives to Achieve 2002 Goal sections support all of the performance goals and are listed after the "Freight Corridors" performance goal.

The FHWA's Freight Analysis Framework expects that by the year 2020, freight volumes will double compared to current levels. While the majority of the U.S. freight shipments are primarily domestic, international traffic is expected to continue growing at a much faster rate than domestic traffic. We are pursuing an evaluation of "travel time in freight significant corridors." Such a measure would permit an evaluation of resource needs and investments in important freight corridors.

Performance Goal: Reduce travel time on key freight corridors

Performance Measure and Results: Travel time on key freight corridors

External Factors: None.

2000 Results: Looking into the economic assessment of freight transportation costs (Performance Goal 2), we determined that "cost-per-mile" data collection and reporting can be quite revealing of larger trends in the motor carrier industry. As described earlier, we are analyzing the data and will derive cost per mile national averages, develop yearly targets, and identify causal factors in subsequent versions of the FHWA Performance Plan.

In the case of our international border crossing reviews (Performance Goal 3), the information received confirms that on-site reviews can provide substantive information about the variations in travel time at the individual border sites. The process also can tell us something, but not everything, about why these variations occur, with some indication of possible corrective actions (e.g., additional inspection booths) that might enhance travel times. We have learned that we need to do more to assure that all jurisdictions and agencies involved, on both sides of the border, are clearly aware of what is being undertaken during these reviews, and know the details of the collection process. In addition, we found out that on-site observers need to have a general sense of peak traffic periods and conditions before commencing the actual review effort, in order to optimize collection procedures.

FY 2001 Performance Plan Evaluation: We will monitor and track the status of all the major initiatives that are required to develop comprehensive performance measures. In addition, we will be initiating a customer satisfaction survey that will focus on a number of freight related issues, e.g., intermodal connectors. We are initiating numerous other outreach efforts to solicit stakeholder feedback on productivity-related performance goals and strategies.

Strategies and Initiatives to Achieve 2002 Goal: To carry out the strategic objective of improving the productivity of freight movement on the surface transportation system, we will pursue the following strategies:

Strategy 1: Develop the analytical framework and conduct analyses necessary for identifying high payoff infrastructure investments, or legislative and policy strategies.

Because much of the freight industry is private and fragmented among numerous shippers, carriers, forwarders, brokers, etc., it has been difficult to get a holistic picture of trade flows and projected trade flows against total system capacity. Over time, we will attempt to develop that capability as well as an analytic framework to evaluate the infrastructure implication of alternative future trade scenarios, policy alternatives, and major investments. Initiatives in 2002 include:

• Completing the Freight Analytical Framework highway capacity methodology for national analytical capability.
• Conducting a series of multi-state, corridor, gateway, and connector capacity investment analysis.
• Completing the report on national/regional benefits of freight investments.
• Conducting outreach to develop policy recommendations regarding freight-related infrastructure and information system requirements.
• In cooperation with FHWA field offices, beginning outreach and training to State and local governments on the use of the Freight Analysis Framework database and analytical framework for freight analysis.

Strategy 2: Develop institutional and policy underpinning for public/private, multi-state and/or multi-institution freight planning and investment, and legislative/programmatic initiatives to enhance North American freight productivity.

The investment horizons and the geography of benefits of freight and intermodal connection investment have been ill-fitted to existing planning and investing institutions. We will nurture those coalitions that are emerging, evaluate their institutional underpinnings, and examine policy options for institutionalizing processes better suited for freight planning and investment. This examination of institutional issues, funding options, and infrastructure requirements will be translated into legislative and program options for enhancing North American freight productivity. Specific initiatives in support of this broad framework include:

• Evaluate current program options for funding freight investments
• Develop policy options on freight planning and investment
• Complete report on "what works" in ad-hoc multi-State partnerships with options and recommendations for formalizing multi-State coalitions.
• Complete examination of NAFTA-related freight productivity issues, with program and legislative options to enhance international freight productivity.

Strategy 3: Directly invest in ITS and infrastructure enhancements to freight productivity.

Instrumentation of the transportation infrastructure that directly meets the needs of freight mobility is key to improving freight productivity. Investments are being made through the TEA-21 1118/1119 corridor and borders grant program, ITS and ITS Deployment programs, and through FHWA's support of the U.S. Customs ITDS system. Initiatives include:

• The Federal Motor Carrier Safety Administration is deploying an operation referred to as Commercial Vehicle Information Systems and Networks (CVISN). CVISN is targeted to be operational in 15 States in 2002.
• FHWA is developing a guidebook of best practices for all stakeholder improvements at both the U.S./Mexico and US/Canada border crossings. A guidebook for the U.S./Mexico border crossings is expected to be complete in the Fall of 2001. Similarly, a guidebook for the U.S./Canadian border crossing is scheduled for completion in 2002.

Strategy 4: Research and demonstrate technology applications that will improve freight productivity.

There exist many information gaps within industry's operations. The information disconnects compromise the efficiency goals of supply-chain management. Industry segments have developed technology to fit their own advantage, but no cross-cutting technology innovations would be instituted without government facilitation. Government can play a role in demonstrating and catalyzing the use of technology that will allow sharing of appropriate information across agency, corporate, and geographic boundaries that will allow infrastructure and equipment to be used more productively. The 2002 initiatives include:

• Both DOT and the Intermodal Freight Technology Working Group, under the auspices of ITS America, plan to initiate intermodal freight operational tests in 2001 and complete them in 2002. Tests will focus on asset and cargo visibility, terminal dray operations, and a freight information highway. A test is being planned between the US, Mexico and Canada on the feasibility of using a proposed standard transponder device to satisfy the needs of border inspection agencies and state motor carrier inspectors. The plan is expected to be complete in 2001-2 for a test at Otay Mesa/Tijuana, using TEA-21 Section 1118/1119 funds.
• A project is underway on the I-35 Corridor to develop a freight mobility plan, using TEA-21 Section 1118/1119 funds. This effort will carry-over into 2002.
• Tests are being planned by the International Trade Data System Board of Directors (ITDS) at border crossings between the US and Canada in early 2001 and between US and Mexico in latter 2001. This effort will continue through 2006. The tests will demonstrate the efficiency of operations using pre-arrival information, thus making clearance automatic at the crossing. FHWA and FMCSA are participating in those tests and have provided funding to support them.

Strategy 5: Size and Weight Regulation and Regulatory Response

Productivity is balanced against the necessary preservation of the infrastructure and maintenance of safety. In that vein, we carry out the necessary oversight of size and weight regulatory compliance, as well as evaluate the productivity impacts of various safety and other regulations. In 2002, we will:

• Continue to evaluate potential changes in the certification, enforcement and operation of commercial vehicles as they relate to vehicle size and weight. Undertake policy review and contribute to rulemakings.
• Develop analysis capability to assess policy/regulatory issues affecting the trucking industry (e.g., hours of service, rest areas, diesel fuel.)
• Initiate active liaison with FMCSA to coordinate on emerging policy/regulatory issues affecting commercial motor carrier operations.

Engineering/economic analysis (EEA) tools, including life-cycle cost analysis (LCCA) and benefit-cost analysis (BCA), can be used to improve the efficiency of highway investment decisions, since they provide guidance for decisionmakers on the economic benefits and costs for alternative highway investment options. Such information is valuable because it reveals investments where the economic returns are greatest, and allows decisionmakers to achieve a performance goal at the lowest total cost. This maximizes the efficiency of the taxpayers' highway investment dollars and saves motorists money as a result of less vehicle wear and tear and reduced congestion-related costs. Although a considerable number of States currently use such tools as LCCA and BCA in some capacity, there is much diversity in application, and most States do not consider the full range of costs and benefits when conducting these analyses. For instance, only one-quarter of the States which use LCCA include user costs, even though user costs (e.g., travel delay, vehicle operating costs, and accidents) can be a significant portion of the total impacts associated with alternative highway project decisions.

Performance Goal: Improve the efficiency of highway infrastructure investments by developing and promoting the use of EEA tools for decisionmaking.

Performance Measures: A survey will be conducted to determine the current state-of-practice with respect to State application of EEA tools. The resulting information will be used to finalize performance measures of roughly the following form:

• The number of State DOTs using systematic EEA tools, via best practice application, to inform their program development process.
• The number of State DOTs using systematic EEA tools, via best practice application, to inform their project design or selection processes.

External Factors: Reasons for the lack of comprehensive use of EEA investment tools such as LCCA and BCA by States include lack of awareness as to the benefits of such tools, limited research budgets, a lack of in-house expertise, and an absence of necessary data and tools.

2000 Results: In FY 2000, FHWA began work to establish a Pilot Program to test the use of Highway Economic Requirements System (HERS) at the State level. In addition, work was initiated to develop an LCCA probabilistic teaching model.

FY 2001 Performance Plan Evaluation: FHWA is gathering information as to what types of EEA tools States would find useful in the evaluation of alternative program structures. Specifically, FHWA started a Pilot Program to test the State use of HERS with an introductory workshop in New Orleans. Seventeen participating States will report to FHWA as to the usefulness of the HERS model. They will also provide input as to their requirements for incorporating EEA into their program development process. In addition, FHWA work at the project level to advance the application of best-practice probabilistic LCCA by States in designing projects will result in a teaching model and companion course. Initial work is focused in pavement design. Outreach efforts for both HERS and LCCA will result in the production and release of executive-level primers.

Strategies and Initiatives to Achieve 2002 Goal:

Through December 2001, FHWA Division Administrators (DAs) will receive executive-level training in EEA tools and instruction on how to benchmark their State's current state-of-the-practice with respect to applying EEA tools in their decisionmaking processes. This exercise will not only allow us to benchmark the use of these tools but will also encourage DAs to partner with headquarters in advancing these tools. FHWA Resource Centers are already involved in this goal area, most notably because they have the responsibility for providing LCCA courses.

Priority initiatives include increasing the number of States:

attending the new LCCA course,

completing the HERS pilot program,

attending a "short" course on the potential of economic analysis, and

using PONTIS to support decisionmaking.

These initiatives will be refined as information from the DA benchmarking  effort becomes available.

Human and Natural Environment

The Federal Highway Administration is committed to protecting and enhancing the natural environment and communities affected by highway transportation. Our objective is to enhance community and social benefits of highway transport by ensur­ing that transportation plans and operations address the community concerns and social impacts of transportation facilities by:

• recognizing the role of trans­por­tation in enhancing communities;
• preserving historic features;
• supporting welfare-to-work, mobility for people with low incomes, and accessi­bility for people with disabilities;
• providing facilities for bicycles and pedestrians; and
• reducing the adverse effects of siting, construction, and operation of trans­portation facilities on the communi­ties, par­ticu­larly disadvantaged com­munities.

FHWA has made environmental justice part of its mission. Title VI of the 1964 Civil Rights Act prohibits discrimination on the basis of race, color, and national origin. FHWA will proactively ensure that discrimination does not occur by identifying and addressing the effects of its programs, policies, and activities on minority populations and low-income populations. FHWA's environmental justice initiatives fit within a broader objective of enhancing communities and social benefits of transportation for all populations. FHWA works with State and local governments to make sure the plans and projects fit harmoniously within all kinds of communities without sacrificing safety or mobility.

Performance Goal:In FY 2002, FHWA will increase public satisfaction with highway systems and highway projects as a beneficial part of their community by promoting good planning practices, inclusive public involvement, careful consideration of environmental impacts, and context-sensitive project designs. (Note: We are examining the results of the 2000 survey to establish a baseline and set targets for future years.)

Performance Measure/Target:Level of Community Satisfaction with the Nation's highway system and projects toward meeting community quality of life goals (using a National FHWA Omnibus survey: see also Mobility Customer Satisfaction Goals).

Performance Measure/Target: Environmental Protection Agency Rating of FHWA Environmental Impact Statements.

External Factors: The American public has multiple and disparate expectations for trans­por­ta­tion and quality of life.

Requests to States for funding through Federal-aid highway programs which benefit the human and natural environment, such as the Congestion Mitigation and Air Quality Improvement Program, Transportation Enhancement activities, the Recreational Trails Program, the National Scenic Byways Program, and the Transportation and Community and System Preser­vation Pilot Program, have consistently exceeded the available funds. This response indicates a pressing need in communities to leverage resources to make their communities more livable.

2000 Results: The first National FHWA Omnibus Survey (a June 2000 national telephone survey) found that 56 percent of the public said that they were "satisfied" or "very satisfied" in response to the question: "How satisfied are you with the transportation system and the transportation options in your community?" FHWA will use this as a base measure. FHWA plans a follow up survey for 2002.

FHWA also led or actively participated in:

Environmental Programs

• NEPA Website Improvements. FHWA redesigned its National Environmental Policy Act (NEPA) website. FHWA also created a new Environ­mental Streamlining website and a Community of Practice site called Re:NEPA. The stream­lining website is continually updated with initiatives from across the country. Re:NEPA is a discussion site for topics related to cumulative and indirect impacts, environmental streamlining, environmental justice, natural environment, and the NEPA process and documentation.
  
  
• Environmental Training. FHWA held a National environmental training workshop for Federal agency field staff.

Community Programs

• Environmental Justice (EJ). FHWA conducted 30 EJ training sessions, held an EJ Summit, and posted a user-friendly and informative website with a brochure, case studies, and frequently asked questions.
  
  
• Native American Issues. FHWA created a new Native American coordinator position.
  
  
• Community Impact Assessment (CIA). FHWA, FTA, Caltrans, and the CIA Design Team held the 2^nd National CIA Workshop in August 2000. The CIA Design Team primarily included State DOT practi­tioners. The next workshop is scheduled for 2002. CIA is a process to evaluate the effects of a transportation action on a community and its quality of life. The assessment process is an integral part of project planning and development that shapes the outcome of a project.
  
  
• Pedestrian Accessibility. FHWA was a member of the Access Board's Public Rights-of-Way Access Advi­sory Committee, which proposed accessibility guidelines for sidewalks, street crossings, and intersections. FHWA completed a report, Designing Sidewalks and Trails for Access (to be pub­lished in mid-2001). FHWA staff gave presentations and workshops on accessi­bility issues at several national pedestrian and bicycle and trail conferences.
  
  
• Transportation Enhancements. FHWA published new National guidance for Transportation Enhancement activities to reflect the significant changes made in TEA-21.

Real Estate Programs

• Program Flexibility. FHWA developed and published a synthesis to describe the flexibility permitted for right-of-way programs under TEA-21 and Federal regulations (23 CFR Part 710).
  
  
• Real Estate Website. FHWA expanded its Real Estate Services website as a primary method of providing information to its customers, partners, and the public. Enhancements included creating and distributing an internet webcard, linking to National Highway Institute training courses, posting a calendar of events, and creating an interactive Uniform Relocation Assistance and Real Property Acquisition Policies Act of 1970 ("Uniform Act") tutorial.
  
  
• International Scan. FHWA organized an International Right-of-Way Scan which identified innovative ways to secure property for highways to reduce negative impacts on landowners. FHWA is evaluating these ideas for potential implementation in the United States.
  
  
• Local Agency Programs. FHWA developed and published on the Internet a Best Practices study of administration of Acquisition and Relocation Programs carried out by local public agencies.
  
  
• Best Practices in Real Estate Program Management. FHWA analyzed the application of quality management principles in five State Transportation Departments and published them as an aid to other organizations.

Planning Programs

• Local Coordination. FHWA and the National Academy of Public Administration developed a set of principles of effectiveness that can be used to improve consultation between State and local officials in the overall transportation planning process.
  
  
• Job Access and Reverse Commute (JARC). FHWA coordinated with FTA to develop a report Job Access Planning: Challenges and Approaches, which was prepared to assist individuals and organi­zations in planning and developing transportation services for people moving from public assistance to the workforce. FHWA also served on the review panel for FTA's JARC grant review process for $30 million in JARC projects.
  
  
• TRANSIMS. FHWA continued developing TRANSIMS, an advanced analytic methodology using microsimulation techniques which allows local areas to develop detailed analyses of the community and social impacts of transportation projects and programs.
  
  
• Scenic Byways. The U.S. DOT designated 30 new National Scenic Byways and All American Roads, and allocated $21 million in National Scenic Byway funds.
  
  
• Noise. FHWA developed the Highway Noise Barrier Handbook (with accompanying videotape and CD-ROM) to advance the state-of-the-art of highway noise barrier design. This will aid the mitigation of noise from motor vehicles and the blending of highways with their environments.

FHWA funding programs provided Tribal governments, the States, localities, and private organizations with funds to enhance communities, reduce traffic congestion, preserve historic transportation facilities, provide pedestrian accessibility and bicycle transportation, develop and maintain recreational trails, and enhance scenic byways.

FY 2001 Performance Plan Evaluation:Level of community satisfaction with the Nation's highway system and projects toward meeting community quality of life goals (using a National FHWA Omni­bus survey; see also Mobility goal).

The first National FHWA Omnibus Survey (a June 2000 national telephone survey) found that 56 percent of the public said that they were "satisfied" or "very satisfied" in response to the question: "How satisfied are you with the transportation system and the transportation options in your community?" FHWA will use this as a base measure. A follow up survey is planned for 2002.

FHWA changed its Environmental Impact Statement (EIS) rating measure to make it more understandable. FHWA will use the measure "Ratings of Environmental Impact Statements" as an indicator of public satisfaction with highway projects. This measure will be an average "grade point" of the Environmental Protection Agency (EPA) ratings given to FHWA EIS documents. The points assigned are:

Strategies and Initiatives to Achieve 2002 Goal: Enhancing Communities Through Highway Trans­por­ta­tion—­The FHWA will foster community and regional level transportation solutions through enhancements in urban and rural community planning, operations, and project development. FHWA will partner with Federal land management agencies, and Tribal, State, regional, and local government planners and project development specialists. We will develop and share tools to effectively incorporate livability; environ­men­tal justice; the preservation of scenic, historic, natural, and community resources; just and fair property acqui­sition; bicycle and pedestrian access; and traffic safety into transportation plans and projects. We wi