A Snapshot of Transportation Planning: Oregon Department of Transportation (ODOT)

3.0 Transportation Planning Services

3.1 Transportation Planning Process

ODOT follows an integrated transportation planning process made up of elements providing guidance and direction for developing and managing Oregon's transportation system. Elements include goals and policy direction for the state system; detailed policy guidance for modal and topic plans; and detailed facility plans for specific projects such as highway segments and interchanges. Plans are developed in coordination with regional and local governments and adopted by the OTC as part of the Oregon Transportation Plan (OTP). They collectively form the state transportation system plan and provide guidance and context for decisions about system improvements, services, and management actions.

A description of ODOT's planning context, planning and associated programs, and policy questions considered by the agency, is provided in this section. Technical data required for transportation planning is discussed in Section 5.0.

3.2 Transportation Planning Context

Transportation planning context within ODOT requires coordination and collaboration between state, regional, and local agencies. In addition, transportation planning context provides the impetus for ODOT to create the modeling and analysis services that benefit the agency today. Each of the component plans is based on analysis of existing and projected conditions to help formulate the desired direction for the transportation system. The agency provides guidance on formulating transportation solutions through state system plans and assists and coordinates with local governments to develop local-system plans.

Statewide Planning Goals

Oregon has 19 Statewide Planning Goals designed to maintain a robust statewide land use planning program. The goals express the vision and values of the people of the state of Oregon and provide a framework for a planning process to balance the competing interests around the state. For example, the goals create an environment for rules related to urban growth boundary expansion, designed to protect the resource base of the state such as farmland and forestland. The goals are implemented under specific administrative rules for each subject area that provide detailed requirements on how goals are to be applied. At the local level, state laws ensure goals are achieved through adoption of comprehensive local plans. At the state level, the State Agency Coordination Program[1] identifies and establishes how state agencies, including ODOT, comply with the Statewide Planning Goals and coordinate with local plans when developing and adopting state plans. State laws also lend strong emphasize on coordination between local, special districts, and state agencies.[2]

Transportation Planning Rule

The Oregon Transportation Planning Rule (TPR) provides specific direction and requirements for the implementation of Statewide Planning Goal 12 "Transportation." The Rule establishes requirements for state, regional, and local governments to develop Transportation System Plans (TSP) and provides a framework for coordination between state and local authorities regarding transportation and land-use-related plans and regulations. The TPR was first adopted in 1991.[3]

3.3 Transportation Planning Products and Programs

Long-Range Transportation Planning

The current long-range transportation plan for Oregon, the OTP, was adopted by the OTC in 2006. The plan was formulated to address federal and state requirements for state transportation planning. The OTP is a multimodal framework establishing desired goals and policies for the state transportation system. The OTP is a component of the state TSP, which included several integrated component plans. A brief description of the OTP elements is provided below.

• Oregon Highway Plan. The overall objective of the current Oregon Highway Plan (OHP) is to define and establish long-range policies and investment strategies for the State Highway System. The plan encompasses a period of 20 years and includes state highway needs, investment strategies, projected revenues, performance measures, and implementation strategies that involve working with regional and local governments. The plan addresses both passenger- and freight-mobility issues. The OTC adopted the current plan in 1999. Since its adoption, the plan has been updated through the following amendments:
  • Expressway Classifications. Updated and adopted in 2013.
  • OHP Tolling and Pricing Policy. Updated and adopted in 2012.
  • OHP Freight Route Map Revisions. Updated and adopted in 2012.
  • OHP Revisions-Access Management. Updated and adopted in 2012.
  • OHP Mobility Standard Revisions. Updated and adopted in 2011.
  • OHP Policy Amendment-Access Management. Updated and adopted in 2011.
  • Facility Plans, such as Interchange Area Management Plans (IAMPs), when approved by the OTC become adopted amendments to the OHP.
• Oregon Rail Plan. Oregon is currently updating its 2001 State Rail Plan (SRP), anticipating plan adoption by the OTC in 2014. The update will establish policy, priorities, and implementation strategies for freight, passenger, and commuter rail transportation in compliance with the federal Passenger Rail Investment and Improvement Act of 2008. The SRP will clarify rail's role in Oregon's multimodal transportation system by first identifying the rail system's current capabilities and then planning to meet future freight, commuter, and passenger rail needs statewide. The SRP will enhance community quality of life and economic development throughout Oregon.
• Oregon Public Transportation Plan. The most recent Oregon Public Transportation Plan was adopted in 1997 as an element of the OTP. The plan addresses a number of ODOT's public transportation policies (including transportation policy for intercity travel), inter-agency coordination of public transportation resources, and plan implementation. The plan includes policies and measures for a period of 20 years and sets level-of-service expectations for a preferred system. A plan update is in the early stages of development and completion is expected by 2015.
• Oregon Transportation Safety Action Plan. This plan also serves as the state's Strategic Highway Safety Plan (SHSP). The Transportation Safety Action Plan (TSAP) includes an overview of the current transportation safety environment and safety problems, a multi-action safety agenda for the next 20 years, a list of emphasis areas that identifies special safety actions, transportation safety performance measures, and the implementation strategy that includes legislation and investment requirements needed to implement the emphasis area actions by the year 2020. The plan was adopted in 2004, and was amended in 2006 and again in 2011.
• Oregon Aviation Plan. The plan is based on a framework defined by the aviation needs of Oregon and the goals of the OTP. The plan includes policies that will guide planning decisions, protect the investment in aviation infrastructure, support economic development, and provide intermodal accessibility. The plan was adopted in 2000 and was updated in 2007.
• Oregon Bicycle/Pedestrian Plan. This plan provides direction and guidance to ODOT and local jurisdictions in establishing bicycle and pedestrian facilities on state highways. The plan has two parts: one part establishes policies and implementation strategies, while the second presents design, maintenance, and safety information. This plan was adopted in 1995. Since then, the second part of the plan, updated in 2011, has been incorporated into the Highway Design Manual. An update of the first part is currently underway to reflect any changes to federal requirements and the goals of the statewide planning program.
• Oregon Freight Plan. The plan describes the economic structure of the state's freight industries and the freight infrastructure that supports these industries and movements. In addition, the plan analyzes effects of potential changes in commodity flows, the economy, climate change, and other factors on the freight system. Further, the plan includes options/strategies for financing the state freight system and for evaluating the relative importance of undertaking specific improvements that would enhance freight movement. Finally, the plan discusses implementation of the strategies. This plan was adopted in 2011.

Transportation Improvement Program

The Statewide Transportation Improvement Program (STIP) falls under the short-range plan category, though this document is essentially a project funding and scheduling program and not a plan. Specifically, the STIP is a four-year transportation capital improvement program for Oregon that has been approved by the FHWA and the FTA. The program includes multi-jurisdiction projects (federal, state, city, and county-level projects), multimodal projects (highway, public transit, freight, bicycle and pedestrian), and multi-sector projects such as projects on the national parks, national forests, and Indian tribal lands. The transportation projects included in the STIP are funded by federal, state, and/or local governments. The program is normally updated every two years.

Established by the OTC in 2001, the STIP Stakeholder Committee is responsible for providing guidance and advice on STIP development policies and procedures, including specifying STIP Project Eligibility Criteria and Prioritization Factors (known as the "STIP criteria"). The STIP criteria are used throughout the STIP development process to narrow the list of possible investments. Project comparison and prioritization methods vary by area and region of the state. The projects listed in the STIP are taken from two main sources: local transportation plans and program data and management systems, such as the Bridge Management System, Congestion Management System, Pavement Management System, and Safety Management System. The key state programs included in the current STIP include:

• Pavement preservation;
• State and local bridge;
• Modernization;
• Safety;
• Operations; and
• Special programs, including bicycle, pedestrian, and transportation enhancement programs.

In addition to the current STIP, ODOT is looking forward to the next STIP, which will include new criteria that organize projects into one of the following categories:

• Enhance. Includes projects/programs that contribute toward enhancement, improvement, or expansion of the transportation system. The Enhance project selection process is significantly different from the previous project selection process as this new process is more focused on making investment decisions based on the transportation system as a whole.
• Fix-It. Includes projects/programs that may contribute toward fixing or preserving the transportation system. The Fix-It project selection process is similar to prior STIPs.

Project Prioritization

For some programs, ODOT uses a number of prioritization factors to select projects to be funded from a list of eligible projects. These programs are Modernization, Pavement Preservation, and State Bridge Replacement and Rehabilitation. In addition, there are separate criteria for Development STIP (D-STIP) and Construction STIP (C-STIP) projects. For example, priority should be given to the D-STIP projects that:

• Implement Oregon Transportation Plan Policy;
• Are suitable for the D-STIP;
• Are for a solution that has already completed one or more D-STIP milestones; and
• Are for a solution that has funding identified for development or construction.

Priority should be given to C-STIP projects that:

• Implement the Oregon Highway Plan Major Improvements Policy (Policy 1G, Action 1.G.1);
• Implement Oregon Highway Plan Policy 1B: Land Use and Transportation, including support for sustainable urban development and applicable land use plans;
• Support state and local economic development plans and goals;
• Support freight mobility;
• Improve the safety of the transportation system;
• Implement Oregon Highway Plan Policy 5A: Environmental Resources;
• Leverage other funds and public benefits; and
• Are ready to go to construction within the four years of the STIP.

In addition, the project prioritization process may be affected by special legislative criteria. For instance, in 2001 and in 2003, the Oregon Legislature approved special funding through the Oregon Transportation Investment Acts (OTIA) to address state bridge needs. All projects funded through OTIA had to meet the legislatively approved funding criteria. It should be noted that all prioritization factors may not be applicable to all projects. In general, projects meeting several prioritization factors and/or meeting them more completely are given higher priority over projects meeting fewer prioritization factors or meeting them to a lesser degree.[4]

Other Planning Programs

• Least-Cost Planning (LCP). In 2009, the Oregon State Legislature adopted the Jobs and Transportation Act, which directed ODOT to develop a least-cost planning methodology for use in the development and assessment of plans and projects at the state and regional level. The Act defines least-cost planning as "[a] process of comparing direct and indirect costs of demand and supply options to meet transportation goals, policies or both, where the intent of the process is to identify the most cost-effective mix of options." Key objectives of the Oregon LCP effort include helping ensure that transportation decisions are made in a way that is transparent and accountable to the public, and makes the best use of public funds to achieve long-term goals. ODOT is currently working with its stakeholders to develop a LCP methodology and analysis tool. The first two phases of the project-a framework to guide LCP development, a draft analysis tool (Mosaic), and a draft user's guide-are now complete.[5] ODOT has begun work on the implementation phase, which includes one or more demonstration projects.
• ConnectOregon. This is a lottery-backed revenue bond, multimodal initiative established by the Oregon Legislature in 2005 (ConnectOregon I). ConnectOregon aimed to improve connections among modes of transportation for air, rail, marine/ports, and transit infrastructure. The success of the first year's $100 million program led to ConnectOregon II and ConnectOregon III programs, at $100 million and $95 million (plus a separate $5 million for rural airports), respectively, and ConnectOregon IV, with $40 million. ConnectOregon V recently added bicycle and pedestrian projects as eligible project modes. Projects eligible for funding from state fuel tax revenues are not eligible for ConnectOregon funding. The OTC approves projects for funding with the assistance of input from 11 review committees, representing five state regions and six modes.
• Oregon Transportation and Growth Management Program. This program is a partnership between the Oregon Department of Transportation (ODOT) and the Department of Land Conservation and Development (DLCD). The program provides planning grants, such as transportation system planning and integrated land use and transportation planning; education and outreach services to local government, such as workshops, lecture series, conferences, and other public forums; and assistance to local governments to update their codes, regulations, project design, and existing transportation system plan.
• Oregon Sustainable Transportation Initiative (OSTI). This program was created to meet the state's goal to reduce greenhouse gas (GHG) emissions by 75% below 1990 levels by the year 2050. The effort involves several agencies, including ODOT, the Department of Land Conservation and Development, the Department of Environmental Quality, and the Oregon Department of Energy. The program comprises a number of initiatives, including developing a toolkit to assist local governments and MPOs in reducing GHG emissions from transportation; developing guidelines for scenario planning; and conducting outreach and education programs.
• Freight Route Capacity Rule Development. This rule (ORS 366.215) restricts the OTC from permanently reducing the vehicle-carrying capacity of an identified freight route. ODOT recently adopted an administrative rule to guide implementation (OAR 731-012). ODOT is working on an internal guidance document that is consistent with the new rule.

3.4 Policy Questions Considered by the Agency

A significant portion of planning work and policy questions considered by ODOT are related to land-use mandates (ORS 197), which makes Oregon unique. The Oregon Statewide Planning Goals and Guidelines, consisting of 19 statewide land-use goals-discussed earlier-form the framework for Oregon's planning program. The planning guidelines for transportation include the following:

• All current area-wide transportation studies and plans should be revised in coordination with local and regional comprehensive plans and submitted to local and regional agencies for review and approval.
• Transportation systems, to the fullest extent possible, should be planned to utilize existing facilities and rights-of-way within the state, provided that such use is not inconsistent with the environmental, energy, land-use, economic, or social policies of the state.
• No major transportation facility should be planned or developed outside urban boundaries on Class I and II agricultural land, as defined by the US Soil Conservation Service, unless no feasible alternative exists.
• Major transportation facilities should avoid dividing existing economic farm units and urban social units, unless no feasible alternative exists.
• Population densities and peak-hour travel patterns of existing and planned developments should be considered in the choice of transportation modes for trips taken by persons. High-density developments, with concentrated trip origins and destinations, should be designed to be principally served by mass transit, low-density developments, with dispersed origins and destinations, should be principally served by automobile.
• Plans providing for a transportation system should consider, as a major determinant, the carrying capacity of the air, land, and water resources of the planning area. The land conservation and development actions provided for by such plans should not exceed the carrying capacity of such resources.

In addition to the land-use mandate, attaining GHG reduction targets for all modes is also an important policy consideration for ODOT.

[1] More information on this program can be found here http://www.oregon.gov/LCD/docs/sac/odsl_sac.pdf

[2] More information on Oregon's statewide planning goals is available here: http://www.oregon.gov/LCD/Pages/goals.aspx#Statewide_Planning_Goals. Information on the history of Oregon's land use planning is available here: http://www.oregon.gov/LCD/pages/history.aspx

[3] Information on the TPR is available here: http://arcweb.sos.state.or.us/pages/rules/oars_600/oar_660/660_012.html

[4] The reader is referred to the following report for more information on project prioritization: 2012-2015 STIP Project Eligibility Criteria and Prioritization Factor for the Development STIP

[5] See www.oregonmosaic.org for the user's guide and more and the draft analysis tool. Project history is available here: www.oregon.gov/ODOT/TD/TP/pages/lcp.aspx