Community Impact Assessment and Environmental for Transit Agencies: A Reference

Public Transit Office Florida Department of Transportation

National Center for Transit Research Center for Urban Transportation Research University of South Florida DISCLAIMER

The opinions, findings, and conclusions expressed in this publication are those of the author(s) who are responsible for the facts and accuracy of the data presented herein. The contents do not necessarily reflect the views or policies of the Florida Department of Transportation or the Research and Special Programs Administration. This report does not constitute a standard, specification, or regulation. The report is prepared in cooperation with the State of Florida Department of Transportation and the U. S. Department of Transportation. Community Impact Assessment and Environmental Justice for Transit Agencies: A Reference

January 2002

Public Transit Office Florida Department of Transportation

National Center for Transit Research Center for Urban Transportation Research

University IofNTRODUCTION South Florida1 Objectives environmental justice, Title VI, and other social issues will be addressed and in a manner that This guide was developed through a grant allows the input of the public throughout the from the National Center for Transit Research decision-making process. and the Florida Department of Transportation, Public Transit Office. The objectives of the re- search included identifying information and Recognition materials on issues and resources related to environmental justice, Title VI of the Civil Special thanks to the following transit pro- Rights Act of 1964, social equity, and the use of fessionals for their assistance in the research: community impact assessment techniques (CIA) in the transit industry. As a result of the Diana Carsey research and the primer, Community Impact As- Hillsborough Area Regional Transit (HARTline) sessment: A Quick Reference Guide for Transportation (hereinafter referred to as the CIA Bill Carter Reference), the purpose of this guide is to pro- Tallahassee Transit (Taltran) vide tools, techniques, and references that may be used to assess transit actions. Beth Coulliette Although environmental justice and Title Bay County Council on Aging-Coordinated VI issues receive special attention, the empha- Transportation (BCCOA) sis is on the use of the impact assessment process for all communities. Many transporta- Ken Fischer tion professionals and analysts state that, if County of Volusia (VOTRAN) transportation actions are properly assessed,

2 ENVIRONMENTAL JUSTICE AND COMMUNITY IMPACT ASSESSMENT FOR TRANSIT AGENCIES: A REFERENCE Peter Gajdjis Maria Savoia Manatee County Area Transit (MCAT ) Regional Transit System (Gainesville)

Steve Githens Spencer Stoleson Lakeland Area Mass Transit District (LAMT) Broward County Mass Transit Division

Jay Goodwill Roger Sweeney Sarasota County Area Transit (SCAT) Pinellas Suncoast Transit Authority (PSTA)

Robert Jacobson Tony Walter Indian River County Council on Aging LYNX (Central Florida Regional Transportation (IRRCOA) Authority)

Jim Liesenfelt Michael Williams Space Coast Area Transit (SCAT) Tri-County Commuter Rail Authority (Tri-Rail)

Perry Maull Nedra Woodyatt Palm Beach County Transportation Authority Escambia County Area Transit (ECAT) (Palm Tran)

Patrice Rosemond Miami-Dade Transit Agency (MDTA)

INTRODUCTION 3 Introduction formation on social impacts, "Transit projects affect the social environment in several ways Over the last decade, a renewed focus on and may change the physical layout, demo- the impacts of transportation actions on com- graphics and sense of neighborhood in local munities has been witnessed throughout the communities." Working together, transit plan- industry. The impetus has been multifaceted, ners and communities can avoid, mitigate, or sometimes led by citizens or "grassroots" orga- minimize these impacts, and enhance commu- nizations, the result of adverse impacts; or nities. proactive legislation and guidance from public agencies. Community Impact Assessment Much of the early guidance on how to as- sess impacts focused on the National "Community impact assessment [CIA] is a Act (NEPA) of 1969 pro- process to evaluate the effects of a transporta- cess, specifically project development. As the tion action on a community and its quality of public and practitioners have gained a better life" (FHWA, Apogee, and Parsons, understanding of the social effects of transpor- Brinckerhoff, Quade, and Douglas 1996:4). It is tation actions, the need to include the public a way to incorporate community consider- early on in and throughout the assessment pro- ations into transportation decision-making. cess has been recognized. Further, in the case From a policy perspective, it is a process for of transit agencies, the impacts of many pro- assessing the social and economic impacts of posed actions are not subject to the project transportation projects as required by the development process, but should be assessed NEPA, Title VI, and other legislation. The as- due to the use of federal funds. sessment may address a variety of important The Federal Transit Administration (FTA) community issues and relies on public involve- Office of Planning (TPL) states in resource in- ment as a major tool for data collection.

4 ENVIRONMENTAL JUSTICE AND COMMUNITY IMPACT ASSESSMENT FOR TRANSIT AGENCIES: A REFERENCE Since the early 1990s, federal and state transportation agencies have refocused efforts to involve communities when considering Assessing Title VI Capability–Federal transportation actions in order to assess the social impacts of the Transit Administration (FTA)/FHWA proposed actions. These efforts have included greater public in- Actions Environmental Justice in State volvement; training, regulations, handbooks, and other guidance for Planning and Research (SPR) and Unified transportation professionals; and the compilation of a number of Planning Work Programs (UPWPs) techniques and tools commonly identified as the community impact assessment process. This increased emphasis on the human envi- At a minimum, FHWA and FTA should ronment was first prompted by the Intermodal Surface review with States, MPOs, and transit Transportation Efficiency Act (ISTEA) of 1991, specifically its revital- operators how Title VI is addressed as part ization of public involvement. ISTEA provided a systematic method of their public involvement and plan for ". . . setting up and implementing a public involvement program development processes. Since there is likely for a specific plan, program, or project" (US DOT 1996:11). The 1994 to be the need for some upgrading of EO 12898, as discussed above, and the subsequent orders fueled activity in this area, a work element to assess these efforts. TEA-21, the successor to ISTEA, continues the strong and develop improved strategies for reaching emphasis on public involvement and extends the commitment to minority and low- income groups through consideration of community impacts. public involvement efforts and to begin In May 2000, the FHWA issued a Notice of Proposed Rule Mak- developing or enhancing analytical capability ing intended to coordinate and streamline planning and project for assessing impact distributions should be development as defined in the NEPA process. The proposed rule considered [emphasis added] in upcoming states that it is a requirement to coordinate and streamline the plan- SPRs and UPWPs. ning and NEPA process. The rule further requires integration of community impact assessment activities in the transportation plan- Federal Register: May 19, 2000 65(98) ning process and increased coordination of the planning and project development processes.

INTRODUCTION 5 Also in May 2000, FHWA published in the Environmental Justice offers the following defi- Federal Register "Policy Guidance Concerning nition of environmental justice: Application of Title VI of the to Metropolitan and Statewide Planning." The fair treatment and meaningful in- (The guidance was first issued in October 1999 volvement of all people regardless of as a joint memorandum from the FHWA and race, color, national origin, or income FTA.) Of particular interest to transit agencies with respect to the development, is the review by FHWA and FTA on how tran- implementation, and enforcement of sit operators address Title VI and the agencies' environmental laws, regulations, and impact assessment capabilities. policies. Fair treatment means that no group of people, including racial, eth- Environmental Justice nic, or socioeconomic group, should bear a disproportionate share of the The Executive Order (EO) 12898, Federal negative environmental consequences Actions to Address Environmental Justice in resulting from industrial, municipal, Minority Populations and Low-Income Popu- and commercial operations or the ex- lations, issued on February 11, 1994, required ecution of federal, state, local, and each Federal agency to develop an agencywide tribal programs and policies (Office of environmental justice strategy. The EO has as Enforcement and Compliance Assur- its main purpose the reinforcement of existing ance 2000). environmental and civil rights legislation to ensure that low-income and minority popula- There is a school of thought that “environ- tions are not subject to disproportionately high mental justice is a discipline that focuses on and adverse environmental effects. The Envi- the recognition and mitigation of such discrep- ronmental Protection Agency’s (EPA) Office of ancies [i.e., disparate impacts of transportation

6 ENVIRONMENTAL JUSTICE AND COMMUNITY IMPACT ASSESSMENT FOR TRANSIT AGENCIES: A REFERENCE planning and devel- opment].” UMTA (now known as FTA ) Circular 4702.1, May 26, 1988, in part Forkenbrock and Schweitzer state, CHAPTER I however, that “envi- ronmental justice 2. The objectives of the [FTA] Title VI program are as follows: represents a public policy goal of ensur- a. To ensure that UMTA-assisted benefits and related services are made available and ing that adverse are equitably distributed without regard to race, color, or national origin; human health or en- b. To ensure that the level and quality of UMTA-assisted transit services are sufficient to vironmental effects of provide equal access and mobility for any person without regard to race, color, or government activities national origin; do not fall dispropor- c. To ensure that opportunities to participate in the transit planning and decision- tionately upon making processes were provided to persons without regard to race, color, or national minority or low-in- origin; come populations” d. To ensure that decisions on the location of transit services and facilities are made (Forkenbrock 1997:1). without regard to race, color, or national origin; and The EO builds e. To ensure that corrective and remedial action is taken by all applicants and recipi- upon the directives ents of UMTA assistance to prevent discriminatory treatment of any beneficiary outlined in the Title based on race, color, or national origin. VI, the National En- vironmental Policy These objectives are the basis for the implementation of the [FTA] Title VI program. Act of 1969, and the Applicants, recipients, and subrecipients of [FTA] financial assistance must adopt a Title VI Clean Air Act as compliance program that is consistent with the requirements in this circular. amended, all of for

INTRODUCTION 7 which are strongly linked to the Transporta- pollutants and hazardous facilities. tion Equity Act for the 21st Century (TEA-21). This exposure does not always lead to serious The United States Department of Transporta- health problems, but is cause for health con- tion (US DOT) subsequently set a goal to cerns. become a model agency for protecting and en- Beyond environmental justice, all the hu- hancing the environment and of man and environment assessment issues are U. S. citizens and issued a departmental order based on legislation and regulations that direct on environmental justice in 1997. The Federal evaluation in transportation decision-making, Highway Administration (FHWA) issued a planning, project development, and subse- related administrative order in 1998. quent processes. These directives relate to Ethnic or racial minority and low-income economic, social, and environmental effects. population groups appear to experience differ- The topics fall into several areas: community ences in disease and death rates; however, the cohesion; environmental impact assessment; data explaining the environmental contribu- environmental justice; landuse planning; and tions to these differences are limited. socioeconomic impacts. Information normally is not collected on envi- Finally, consideration of these issues re- ronmental health effects by race and income. lates to the distribution of and access to Nor is it collected on health risks posed by resources—power differentials. Manheim multiple industrial facilities or transportation states, facilities. For diseases known to have environ- mental causes, data are not typically An essential characteristic of transporta- disaggregated by race and socioeconomic tion is the differential incidence of its group. The literature suggests that racial mi- impacts. Some groups will gain from any nority and low-income populations experience transportation change; others may lose. higher than average exposures to selected air Therefore, transportation choices are

8 ENVIRONMENTAL JUSTICE AND COMMUNITY IMPACT ASSESSMENT FOR TRANSIT AGENCIES: A REFERENCE essentially sociopolitical choices: the in- terests of different groups must be Legal Basis balanced (1979:19). There are several Federal regulations, statutes, policies, and The sociopolitical choices of past transpor- orders that require assessment of the social impacts of transporta- tation actions, particularly as related to the tion actions. Many of the legal requirements relate to all federally interstate highway system, have dispropor- assisted projects. Others, however, place specific requirements on tionately affected low-income or minority recipients of funds from FTA. ethnic communities. As early as 1970, Helen Leavitt documented the disruption of black EO 12898 Federal Actions to Address Environmental Justice in communities by superhighway plans (in Minority Populations and Low-income Populations passim: 1970). In Divided Highways, Tom Lewis also documents several African Ameri- EO 13166 Improving Access to Services for Persons with Limited can communities displaced by the interstates English Proficiency (Lewis 1997:186-89, 197, 199). More recently, grassroots organizations have begun to chal- FHWA (Administrative Order) 6640.23 Actions to Address lenge transportation investments. For Environmental Justice in Minority Populations and Low-income example, in roadway investments versus pe- Populations destrian and bicycle facilities, African Americans and other people of color walk, bi- FHWA/FTA Memorandum on Title VI Requirements in Metro- cycle, and use transit more than their white politan and Statewide Planning counterparts, but are more likely to be victims of automobile-pedestrian or -bicycle crashes Florida Administrative Code (FAC) Chapter 14-73 than the average person (Corless and Arteaga 2000:8). Grassroots organizations also have (continued) been successful in challenging expenditures

INTRODUCTION 9 light rail versus rubber tire transit in Atlanta Legal Basis (continued) and Los Angeles (Bullard 2000:4; Garcia 2000:10). As one of the leading researchers on Florida Statute §341.052 transportation and environmental justice stated, "Transportation is not just law. It is NEPA of 1969 politics and community." (Oedel 2000:10).

"Nondiscrimination in Federally-Assisted Programs of the Department of Transportation - Effectuation of Title VI of the Civil Rights Act," 49 C.F.R. Part 21

Office of the Secretary of the Department of Transportation (OST) Docket No. 50125 Department of Transportation Order to Ad- dress Environmental Justice in Minority Populations and Low- Income Populations

Title VI of the Civil Rights Act of 1964, as amended, and related statutes

Transportation Equity Act for the 21st Century

UMTA (FTA) Circular 4702.1, Title VI Program Guidelines for Federal Transit Administration Recipients, 26 May 1988

10 ENVIRONMENTAL JUSTICE AND COMMUNITY IMPACT ASSESSMENT FOR TRANSIT AGENCIES: A REFERENCE The Assessment Process

The CIA process is holistic and iterative, beginning with the conception of an action through implementation, monitoring, and evaluation. Public involvement is an integral tool. The basic steps of the process are listed below:

Step 1. Determine the nature of the ac- tion and define the study area. Step 2. Develop a community profile to gain a thorough understand- ing of the study area, including any issues surrounding the pro- posed action. This information provides a baseline for analysis Figure 1. The Community Impact Assessment Process and is used to understand what would happen in the community with and without the action. which group or groups may be Step 3. Analyze each alternative identi- impacted. fied and identify any potential Step 4. Identify potential solutions to ad- impacts and the magnitude of verse impacts. those potential impacts. Identify Step 5. Document the findings, including impacts, solutions, and commit- ments.

THE ASSESSMENT PROCESS 11 For transit agencies, many of the above siderations are the basis of the assessment pro- steps and the techniques discussed below are cess. similar to the data collection and reporting re- The following section presents examples of quirements and monitoring procedures for the possible transportation actions and their po- Title VI Program for FTA recipients. The as- tential impacts on communities. These sessment process described, however, provides examples are discussed in the context of com- the opportunity to enhance the agencies' as- munity cohesion, safety, Titles VI and VIII of sessment capabilities for all communities and the Civil Rights Act of 1964, environmental jus- its holistic approach fully incorporates Title VI tice, landuse, mobility and travel patterns, and environmental justice issues into decision- aesthetics and visual qualities, consistency making. with local, regional, and state plans, and cu- mulative and secondary impacts. Overview of the Remainder Undergirding the assessment process is the of the Reference use of public involvement and outreach, par- ticularly to underrepresented segments of the The remainder of the reference provides public. information on how the assessment process The final section is resources, including can be used to address transit actions. The references, websites, contacts, and so forth. next section, Transit Service Area Profile, com- bines the development of a community profile with the demographic and service profile and other data collection requirements of UMTA (FTA) Circular 4702.1. The analysis of commu- nity facilities and services, population characteristics, and other socioeconomic con-

12 ENVIRONMENTAL JUSTICE AND C OMMUNITY IMPACT ASSESSMENT FOR TRANSIT AGENCIES: A REFERENCE GUIDE Transit Service Area Profile

The FTA TPL in its resource information on the environmental process states the regulations implementing NEPA "...ensure that information on the social and environmental impacts of any feder- ally-funded action is available to public officials and citizens before decisions are made and before ac- tions are taken [emphasis original]." FTA also uses the NEPA process as an "overarching umbrella" to consider other provisions, including civil rights and other social impacts, that affect decision-mak- ing. This may include such actions as:

• changes in geographic areas of service; • travel times and reliability; Figure 2. Community impacts in relation to other environmental issues • frequency and hours of service; • changes in transit patronage and de- mand; Defining the Action • changes in transit mode; • changes in station access and circula- Step 1 of the community impact assessment process described above tion; and is "Determine the nature of the [proposed] action and define the study area." This project identification process generally has been associated • increased traffic around stations and with the project development and environment (PD&E) phase of depots.

TRANSIT SERVICE AREA PROFILE 13 roadway or other construction projects. It is used to determine the pur- • providing the opportunity for all af- pose and need of the project and develop project alternatives as required fected communities, whether low- by NEPA. In planning, this process is similar to problem definition. income, minority, or not, on each Inclusion of community analysts, resource agencies, and the public proposed action; in this initial phase, however, provides the opportunity for new perspec- • facilitating interagency coordina- tives on the proposed action. In addition, issues or concerns of the tion by identifying these community are raised before major investments in staff, time, and other stakeholderers and seeking their in- resources are committed to particular alternatives. Early and continuous put; and public involvement is central to community impact assessment. • providing a proactive and collabo- Using Title VI Demographic and rative approach to problem-solv- ing. Service Profile Maps, Overlays, and Charts The Title VI Demographic and Service Pro- As discussed earlier, proposed transportation actions are associated file Map is a base map providing general with a geographic area within the service area or a proposed increase to information on the population and key facili- the service area. Transit may have an advantage over other transporta- ties in the service area. As service changes are tion agencies due to the development of maps and overlays compiled as suggested, this base map is the starting point part of their program guidelines. These maps and overlays may be pro- for more intensive analysis around a smaller vide baseline data for a more comprehensive analysis of any impacts. study area. The benefits of the assessment process include: Florida Statute §341.052 requires eligible recipients of public transit block grant funds to • providing the opportunity for consideration of environmental justice and Title VI issues on each proposed action by allowing ...establish public transportation de- input from low-income and minority communities; velopment plans consistent, to the

14 ENVIRONMENTAL JUSTICE AND COMMUNITY IMPACT ASSESSMENT FOR TRANSIT AGENCIES: A REFERENCE FTA Circular 4702.1, in part CHAPTER III

DATA COLLECTION AND REPORTING REQUIREMENTS

3(1)(1) Demographic and Service Profile Maps, Overlays and Charts. The [Department of Justice] DOJ and [Depart- ment of Transportation] DOT regulations state that Federal agencies should require information on the minority population eligible to receive federally funded services. To address this requirement, FTA requires transit providers meeting the threshold to prepare the following demographic and service profile maps, overlays, and charts....

1. Base Map. A legible scaled map of the transit service area which identifies:

a Each census tract by number or traffic analysis zone; b Major streets and highways; c Fixed transit facilities, including rapid rail stations, fixed transit guideways, maintenance and garage facilities, and administrative buildings; and d Major activity centers or transit trip generators, such as the central business district, outlying high employment areas, schools, and hospitals.

2. Overlays. Two transparencies must be submitted which show the distribution of the minority popula- tion and transit service in the service area....

a Minority Population Overlay. This overlay should encompass the entire service zone, showing the total minority population for each census tract or traffic analysis zone shown on the base map

TRANSIT SERVICE AREA PROFILE 15 maximum extent feasible, with ap- FTA Circular 4702.1, in part proved local government CHAPTER III comprehensive plans of the units of DATA COLLECTION AND REPORTING REQUIREMENTS local government in which the pro- (continued) vider is located.

expressed in raw numbers and as a percentage Current legislation mandates that provid- for that tract or zone.... ers provide information to regional workforce b Transit Service Overlay. This overlay should boards servicing their counties regarding the show all transit routes, including rail lines in the availability of transportation services for per- service area, with their origins and destinations. sons in transition programs. The The type(s) of service provided on each route transportation development plan (TDP), with should be indicated (e.g., express, limited, local, its annual updates, is the primary "action" un- or commuter service) as well as, the time of dertaken by Florida public transportation service (e.g., peak hour only; non-peak hour all providers. The reference to persons in the wel- day service). fare transition program heightens the need to consider the effects of the plan on low-income 3. Population/Racial Distribution Chart. ...FTA re- communities. The community impact assess- quires a chart for each census tract or traffic ment process can provide a complementary set analysis zone showing the actual numbers and of tools to the TDP, helping to meet the require- percent ages for each minority group within that ments of the Florida Administrative Code zone or tracts. The total population should also be (FAC). shown. The FAC provides the rules and regula- tions for completing the TDP. The basic A summary chart...should be prepared for the entire service area. elements of the TDP include:

16 ENVIRONMENTAL JUSTICE AND COMMUNITY IMPACT ASSESSMENT FOR TRANSIT AGENCIES: A REFERENCE • community goals and policies; • demographic, socioeconomic, , transportation, and transit data; • public involvement; • public and private transit service analysis; and • a five-year implementation program for selected alternatives.

The TDP can be an extensive data collec- tion and analysis undertaking, especially for first-time applicants. Some transit agencies have in-house staff prepare the TDP, others use outside consultants. Much of the information, however, is available through other resource agencies in the community or via the Internet. Resource agencies and the public are the pri- mary sources for community values, issues, and needs and serve to verify data collected from other sources. The CIA Reference describes the study area as communities within and immediately sur- rounding where the proposed change will Figure 3. Study area, proposed action, bus route with bus stops, and occur. This area may change due to impacts to communties other communities that are identified later. This is an iterative process. TRANSIT SERVICE AREA PROFILE 17 Update IDENTIFY COMMUNITY ISSUES conditions in the service area and is an inte- & ATTITUDES gral part of developing a community profile. Review Secondary Sources Williams et al. state, Talk to Knowledgeable Persons Visit the Community Interview Stakeholders The community profile is a summary REVIEW SOCIAL & of baseline conditions and trends in a ECONOMIC CHARACTERISTICS SUMMARIZE community and study area. It estab- Demographics FINDINGS lishes the context for assessing Growth Trends Written Summary Labor Force potential impacts and for.. . . decision- Major Employers Socio-Economic Inventory Map making. Developing a community Housing profile involves identifying commu- INVENTORY STUDY AREA FEATURES nity issues and attitudes, locating Community Facilities & Services notable features in the study area, and Land Use Characteristics assessing social and economic condi- Transportation Characteristics Update Aesthetic & Cultural Resources tions and trends in the community and region that have a bearing on the transportation action (2000). Figure 4. Developing a Community Profile The baseline map, as shown in Figure 3, The Community Profile provides a visual presentation of the study area characteristics. Other elements of the More and more agencies are using geographic information systems community profile may include a narrative de- to develop Title VI maps and for other purposes, either through in-house scription of the area, with emphasis on systems or online resources. This base map provides a bird's eye view of community characteristics, demographics, his- tory, and important facilities. Other graphics,

18 ENVIRONMENTAL JUSTICE AND COMMUNITY IMPACT ASSESSMENT FOR TRANSIT AGENCIES: A REFERENCE such as photographs, charts, and tables also The community profile provides information on the "affected envi- may be presented. ronment" in NEPA documentation. To complete the profile several types The CIA Reference provides the following of data are collected and summarized. The data collection effort and the guidance on developing a community profile: level of documentation varies according to the proposed action. Ex- • define community boundaries, and amples of the types of data include population and demographic neighborhood or subdivision bound- characteristics; economic and social history and characteristics; and aries; physical characteristics that are related to community activities. • locate businesses, residences, and ac- tivity centers of potentialimpact, Socioeconomic Data Collection especially neighborhoods along high- way alternatives and near As discussed earlier, transit agencies may have advantages, since a interchanges; considerable amount of archival data may be available in-house from • determine demographic development of the Title VI Demographic and Service Profile Maps. With characterististics, economic base, loca- additional data sources, particularly public involvement, these data can tion of community facilities, and other be supplemented to assess the impacts of any action for any community. characteristics; Federal, State, and local governments are good sources of archival data. Planning agencies can provide demographic and economic infor- • learn about a community within the mation for a city, county, or region. This information also may be study area by comparing local or area summarized in local comprehensive plans and metropolitan planning population demographics, land-use, organization (MPO) long range plans. The U.S. Census also provides and other characteristics with State or much of this information. Demographic information is also regularly regional information; and compiled and maintained by other agencies such as school districts, hu- • continually refine the profile through man service agencies, water management districts, and health out the assessment process as impacts departments. Increasingly, more of this data is available on the Internet. are identified and as situations change over time (1996). TRANSIT SERVICE AREA PROFILE 19 Representatives of these agencies also Types of Data are good resource persons who may be Demographic Economic characteristics interviewed or other- wise participate in Population and growth trends Unemployment rates and trends the assessment pro- Age distribution Workforce characterization (SIC codes) cess. Average household size Dominant business sector type Ethnic composition Major employers Average household income (compare to Inventory Com- surrounding area) Housing munity Facilities Concentrations of special groups and Resources Children five years of age and Age, type, and condition of structures younger Vacancy rates and trends A compilation of Elderly persons Length of residency (percentage of resi- facilities, services, Minority or low-income populations dents five years or more) and other resources Persons with disabilities Extent and availability of low-income in the study area is Religious or ethnic groups housing part of the data col- Types of residences lection effort. Rental units Depending on the Homeowners extent of the pro- posed action, these resources may be added to the base

20 ENVIRONMENTAL JUSTICE AND COMMUNITY IMPACT ASSESSMENT FOR TRANSIT AGENCIES: A REFERENCE map. These data are Data useful in determin- ing impacts of the Sources Typical Uses proposed action to needed services. Al- Aerial and road maps Community boundaries, physical charac- though the inventory Census Bureau and statistical abstracts teristics, activity centers, facilities, begins during initial City, Donnelley, or Yellow Pages directories businesses, and services data collection, it and Dun and Bradstreet (D&B) databases Population, demographics, socioeconomic should be updated Field surveys and reviews indicators, and housing and expanded as the Interviews and public involvement with Businesses and community facility loca- assessment proceeds. business owners and community leaders tions and types The inventory and residents Location of structures and activity patterns builds on data that Metropolitan Planning Organization (MPO) Community values, issues, and needs should already be Historical societies and State Historic Economic base, land use, long range plans available from the Preservation Officer (SHPO) Historical background, location of historic Title VI Service Map. Real estate journals and interviews structures, and districts It may include the State and local government and social Housing prices, characteristics of struc- following: service agencies (including employment tures, and neighborhood composition service and workforce board) Comprehensive plans, human service and • Medical and State, local, and university libraries other programs, and other general health care Other important agencies, e.g., American information facilities Automobile Association, American General information, historical back- Association of Retired Persons, chambers ground, and socioeconomic information of commerce, congregate meal sites, Special populations and needs and issues religious institutions, etc. of underrepresented communities

TRANSIT SERVICE AREA PROFILE 21 • Educational facilities Community Profile Elements • Religious institutions Baseline Conditions • Public works and services Social Characteristics • Civic centers Demographic Profile & Special • Recreational facilities Populations • Aesthetic, cultural, and historical resources Community Issues and Attitudes Community Facilities and Services • Commercial facilities Community Cohesion • Land-use characteristics and transportation Mobility facilities. Safety Economic Characteristics Community Issues and Attitudes Labor Force Characteristics Major Employers and Industries Again, public involvement is essential to community impact assess- Land-use and Transportation ment. Baseline socioeconomic data is part of a continuum in the Facilities assessment process. This data is supplemented by input from the af- Existing and Planned Land Use fected communities. The data can be used to identify potential impacts, Existing Zoning stakeholders, and key persons or groups. Several methods may be used Growth Trends and Issues (past to collect these data. Archival data or secondary source materials may and present) provide insight into community issues. These sources include local gov- Notable Features in Study Area ernment comprehensive plans, local policy studies, media reports, Aesthetic Character editorials, minutes of public hearings or meetings, published local histo- Historic Resources ries, government reports, photographs of the area, or other documents. Socioeconomic Baseline Map Other sources include:

22 ENVIRONMENTAL JUSTICE AND COMMUNITY IMPACT ASSESSMENT FOR TRANSIT AGENCIES: A REFERENCE • interviewing key individuals; • conducting community site visits to observe how facilities are used; • interviewing stakeholders, those who may be directly affected by the action.

Document Key Findings

A summary document of key findings should be prepared, including a representative map. This document focuses on issues relevant to the proposed action. The map may provide relevant overlays of key popula- tion groups, neighborhoods, facilities, and other notable features. The map later may be used to compare alternatives to potential impacts and to inform the community and agency staff of the trade-offs among alter- natives. The community profile document is a record of initial findings that is updated throughout the assessment. It may be included in NEPA documentation or used as a stand-alone document.

TRANSIT SERVICE AREA PROFILE 23 Actions and Impacts Florida Administrative Code (FAC) Chapter 14-73 Public Transportation, in part The initial community profile document , including the baseline data, provides a starting 14-73.001 (6)(c)2. b. State Public Transit Block Grant funding point for the analysis of the effects the pro- requires the applicant to develop and adopt a Transit Development posed action on the community. Throughout Plan (TDP)...A TDP shall comply with the following elements at a data collection, review, and summary, commu- minimum. nity issues and needs are identified. In the I. The TDP shall identify and list community goals and policies process of evaluating existing transit services with respect to transportation and land use in general and specifi- and developing alternatives, the effects of the cally to transit service. alternatives or "actions" also must be evalu- II. The TDP shall identify and quantify the community’s need for ated. The CIA Reference suggests these transit service using demographic, socioeconomic, land use, trans- guidelines: portation, and transit data as appropriate. There shall be an oppor- • Keep community goals in mind when tunity for the public to express the need for transit service improve- ments, such as but not limited to, Citizens Advisory Committees and identifying impacts. workshops. • Be cognizant of both positive and III. The TDP shall include an analysis of the services currently negative impacts. provided in the community by public and private transit service • Consider both temporary and long- providers in terms of quality and quantity of service...The process term impacts as well as secondary and for selecting an alternative for implementation shall include an cumulative effects. opportunity for .... • Focus on the magnitude of an issue or V. The TDP shall not be in conflict with the approved local controversy, as it determines the level government comprehensive plan and the comprehensive (long of specificity needed to address the range) transportation plan.... issue.

24 ENVIRONMENTAL JUSTICE AND COMMUNITY IMPACT ASSESSMENT FOR TRANSIT AGENCIES: A REFERENCE • Recognize the public's perception of Civil Rights and Environmental Justice impacts. If the public identifies issues, then review and address these issues. Central to civil rights and environmental justice concerns is that the proposed action Interconnection of Impacts does not result in disproportionately high or adverse impacts, particularly to low-income or The above list of impacts is not exhaustive, minority groups. The effects of the proposed nor do impacts occur in isolation. Different action, beneficial and adverse, should be equi- impacts may relate to each other. Impacts also tably distributed, in a nondiscriminatory may be direct, indirect, or cumulative, or the manner. To assure equity in the process, ef- effects counterbalancing. Direct impacts gener- forts should be made to ensure that affected ally have immediate or primary effects, such as communities have access to the decisionmak- relocation of residents or businesses or loss of ing process, decisionmakers, and information. access. Indirect impacts may be inadvertent or Special efforts may be necessary to include extend beyond the physical location of the ac- underrepresented groups, such as persons tion. Cumulative impacts may result when an with disabilities, and persons unfamiliar with action is considered in light of other actions the democratic process, such as recent immi- that taken individually have different implica- grants or persons who have historically not tions than when considered together. Effects of participated in the process. an action also may be counterbalancing, both Executive Order 12898 specifically ad- beneficial and adverse. For example, siting a dresses disproportionately high and adverse transfer terminal in a community may increase impacts on low-income and minority commu- mobility for residents in surrounding neigh- nities. Unfortunately, such impacts tend to borhoods, but also may increase traffic, noise, occur as a result of cumulative or indirect and other adverse impacts. impacts. That is, overtime, low-income or mi- nority communities may experience the effects (Continued on page 28.) ACTIONS AND IMPACTS 25 Possible Impacts

Access and Displacement Economic Tax base Mobility Will the proposed Business Displace- Relocation Employment action affect the tax Nonmotorized ments Are relocation Will the proposed base, e.g., changes Access Does the action sites available? action improve in values, What effect will the require displace- access to employ- changes in activity, action have on ment of businesses, Residents ment centers? removal of taxable bicyclists' and religious institu- Will the action property from the pedestrians' access tions, or other require displace- Business base? to facilities? special landuse? ment of residents? Will the proposed Do the businesses What types of action affect General or institutions residential units business access, Multimodalism have characteris- are affected? Are activity, or How does the tics unique to the any residents visibility? Land-use action affect access community? from special to other modes of population Property values Compatibility with transportation? Neighborhoods groups, e.g., Will the proposed Goals What are the elderly, low- action affect Is the action effects on the income, persons property values, consistent with the neighborhoods? with disabilities? i.e, relocations, local plans? The changes in land community's goals? use?

26 ENVIRONMENTAL JUSTICE AND COMMUNITY IMPACT ASSESSMENT FOR TRANSIT AGENCIES: A REFERENCE Possible Impacts (continued)

Physical Intrusions Public Services Safety Social Quality of Life How will the Barriers Use of Public Pedestrians and Community action affect the Will the action Facilities Bicyclists Cohesion quality of life? create a barrier Will the action How will the Will the action such as from walls increase access to proposed action affect interaction Values or fencing? public facilities affect the safety of among persons Will the action (e.g., schools, nonmotorists? and groups? Will cause a change in Sounds recreation it change social social values? Will the action facilities, etc.)? Emergency relationships and increase noise or Response patterns? vibrations? Compatibility Will the proposed with Plans action affect the Isolation Visual Other intrusions Is the proposed response time of Will groups of Will the action action consistent emergency people be sepa- Aesthetics increase dust or with local plans workers (e.g., fire, rated from others? How will the odors? Will it and zoning? police, medical, action affect the decrease visibility? etc.)? Population community's Create a shadow- Changes character? What ing effect on Will the proposed are potential property? action cause aesthetic effects? redistribution?

ACTIONS AND IMPACTS 27 of adverse impacts Civil Rights and Related Legislation brought about by the actions of one or more agencies. EO 12898 Federal Actions to Address Environmental Justice in Minority Populations and While the commu- Low-income Populations nity profile may help to identify such ac- FHWA (Administrative Order) 6640.23 Actions to Address Environmental Justice in Minority tions, public Populations and Low-income Populations involvement and other community im- FHWA/FTA Memorandum on Title VI Requirements in Metropolitan and Statewide Planning pact assessment techniques will help "Nondiscrimination in Federally-Assisted Programs of the Department of Transportation - to assure identifica- Effectuation of Title VI of the Civil Rights Act," 49 C.F.R. Part 21 tion of these effects with the help of the Office of the Secretary of the Department of Transportation (OST) Docket No. 50125 Depart- affected communi- ment of Transportation Order to Address Environmental Justice in Minority Populations and ties. Low-Income Populations Assessment Tools Title VI of the Civil Rights Act of 1964, as amended, and related statutes The CIA Reference UMTA (FTA) Circular 4702.1, Title VI Program Guidelines for Federal Transit Administration states that there are Recipients, 26 May 1988 several approaches

28 ENVIRONMENTAL JUSTICE AND COMMUNITY IMPACT ASSESSMENT FOR TRANSIT AGENCIES: A REFERENCE to analyze impacts. The primary three dis- cussed in the primer are comprehensive, comparative, and incremental. When evaluat- ing impacts comprehensively, as much data as possible is collected, analyzed, and a determi- nation is made. In general, comparative analyses are based on evaluations of similari- ties and differences between the proposed action and previous actions. Incremental evaluations build on data overtime until a de- termination can be made. The primer recommends that when using any approach to consider effects with and without the proposed action.

Selected Tools

Florida transit agency representatives indi- cated in a survey that a number of techniques are used to analyze the impacts of their

Figure 5. How impacts may interconnect

ACTIONS AND IMPACTS 29 actions. The following techniques or tools are Public Involvement listed in order of frequency of responses: As stated earlier, public involvement 1. Public Involvement undergirds the CIA process. The CIA Reference 2. Brainstorming states that the public can participate as fol- 3. Comparisons lows: 4. Statistical Analysis 5. Expert Consultation • Development of the action's purpose 6. Peer Reviews 7. Market Research and need and identification of alterna- 8. GIS/Databanks tives. 9. Internet/World Wide Web • Development of the community profile. 10. Map Overlays • Identification and analysis of impacts. 11. Delphi Techniques • Identification of avoidance, minimiza- tion, mitigation, and Several techniques may be combined to enhancement opportunities. gain a better understanding of the community's concerns or to assure that differ- The principles of public involvement in the ent groups in the community are reached. The community impact accessment process include emphasis is not on a particular technique, but early and continuous communication between rather the involvement of the community in affected communities and the proposing identifying impacts. agency. The process also includes open dia- logue.

30 ENVIRONMENTAL JUSTICE AND COMMUNITY IMPACT ASSESSMENT FOR TRANSIT AGENCIES: A REFERENCE Effective public involvement includes noti- other professionals to aid in identifying the fication of proposed actions and activities, right tools or media. The resource section of effective communication, and appropriate tech- this document has more information. Resolving Adverse niques to reach affected communities. Impacts Suggested techniques include: Resolving Adverse Impacts

• Ad hoc task forces Throughout the assessment process, tran- Avoid the impact • Advisory committees sit analysts should seek to address adverse • Community events impacts as they are identified. The CIA Refer- • Field offices ence states that there are four ways to address Minimize the effects • Focus groups adverse impacts. These should be considered in order, although opportunities for enhance- • Internet websites ment should always be sought. • Newsletters Since the CIA process is iterative, efforts to Mitigate the effects • Personal contact address one impact may give rise to another • Public meetings adverse impact. Here, again, consideration • Questionnaires and surveys should be given to addressing impacts in rela- tion to others. The public should participate in Enhance the • Workshops the efforts to identify potential adverse impacts community and solutions. Other techniques are available and should The Community Impact Assessment Handbook be explored and used as appropriate through- advises that comments made to address out the assessment. Consideration also should be given to selecting the appropriate staff or

ACTIONS AND IMPACTS 31 impacts should be documented. This is part of the record Other formatting guidelines that may be considered, of findings whether for NEPA documentation or a stand- particularly for stand-alone documents, include: alone summary of the assessment. The documentation also provides a record of the commitments made in the • an executive summary; early phases of the assessment and a report on the status • topics related to the action and as required by leg- of the commitments. islation; • a summary of public involvement activities, in- Documenting Findings cluding substantive comments and findings; • graphics; Documentation takes place throughout the assess- • an objective, unbiased tone; ment process. For some actions, specific documentation is • conclusions, including concerns,alternatives or required to comply with Federal or State regulations, e.g. NEPA, the TDP. These regulations provide suggested for- solutions, and commitments. mats for documentation. In addition, the handbook, and the CIA Reference, provide recommendations on where the Community impact assessment techniques may be in- CIA information may appear within environmental docu- corporated into transit agencies' decision-making over mentation. time. As changes in services are considered or with up- Within the TDP, CIA information may be presented as dates to the TDP, staff should seek opportunities to partner follows: with the affected communities to identify potential impacts, address adverse impacts, and find ways to enhance com- munities. • Study Area Base Data (Community Profile). • Evaluation of Existing Transit Services and the Development of Alternatives.

32 ENVIRONMENTAL JUSTICE AND COMMUNITY IMPACT ASSESSMENT FOR TRANSIT AGENCIES: A REFERENCE Resources n.d. Social & Economic Impacts. Electronic document, http://www.fta.dot.gov/office/planning/ The following references and bibliography provide in- ep/ subjarea/se.html. formation on other resources to aid in the assessment pro- cess. n.d. Transportation Impacts. Electronic document, http://www.fta.dot.gov/office/planning/ep/ References Cited subjarea/trans.html. Forkenbrock, David J. and Lisa A. Schweitzer Corless, James and Luis Arteaga 1997 Environmental Justice and Transportation In- 2000 Pedestrian Safety and Social Jus- vestment Policy. Iowa City: University of Iowa, tice. In : Surface Transportation Policy Public Policy Center. Project. Vol. X(1):8. Manheim, Marvin L. Federal Highway Administration et alia 1979 Fundamentals of Transportation Systems 1996 Community Impact Assessment: A Analysis, Volume 1 Basic Concepts. Cambridge, Quick Reference for Transportation. FHWA-PD-96- MA: Massachusetts Institute of . 036. Washington, DC: U.S. Department of Transportation. Oedel, David G. 2000 The Long March to Transportation Federal Transit Administration, Office of Planning Justice in Macon. Progress: Surface Transportation n.d. The Environmental Process. Elec- Policy Project X(1):6. tronic document, http://www.fta.dot.gov/office/ planning/ep/index.html.

RESOURCES 33 Office of Enforcement and Compliance Assurance Burchell, R., Listokin, D., et alia 2000 Environmental Justice: U. S. Environmental 1994 Development Impact Assessment Handbook. Protection Agency. Electronic document. http:// Urban Land Institute: Washington, D.C. es.epa.gov/oeca/main/ej/index.html. Burdge, R.J. Williams, Kristine A. et alia 1985 Social Impact Assessment and the Planning 2000 Community Impact Assessment: A Handbook Process. Planning & Public Policy. 11(2), August . for Transportation Professionals. Electronic docu 1990 Social Impact Assessment and the Public In- ment. http://www.cutr.usf.edu/pubs/ volvement Process. Environmental Impact cia_handbook.htm. Assessment Review 10(1/2): 81-90.

Branch, K, et al. Guide to Social Assessment. Boulder, CO: Bibliography Westview Press, 1984.

Bass, R. and A. Herson Burdge, R.J., A Community Guide to Social Impact Assess- 1993 Mastering NEPA: A Step-by-Step Approach. ment, Middleton, WI: Social Ecology Press, 1994. Solano Press. Canter, L. Bowles, R.T. 1996 Environmental Impact Assessment. Second 1981 Social Impact Assessment in Small Communi- Edition, New York: McGraw-Hill, Inc. ties. Toronto: Butterworths. Canter, L., B. Atkinson, and F.L. Lesitritz, eds. 1985 Impact of Growth: A Guide for Socio-Economic Impact Assessment and Planning. Chelsea MI: Lewis.

34 ENVIRONMENTAL JUSTICE AND COMMUNITY IMPACT ASSESSMENT FOR TRANSIT AGENCIES: A REFERENCE Conner, D. Federal Transit Administration. 1994 The Social Profile. Constructive Citizen Partici- 1995 Transportation, Environmental Justice, and So- pation. cial Equity Conference Proceedings. Prepared by Council on Environmental Quality the Surface Transportation Policy Project and Cen- 1997 Considering Cumulative Effects Under the Na- ter for Neighborhood Technology. Washington, tional Environmental Policy Act. Washington, DC: DC: U.S. Department of Transportation. Executive Office of the President. 1997 Planning, Developing, and Implementing Com- munity-Sensitive Transit. Washington, DC: Office Creighton, J. L. of Planning. October . 1981 The Public Involvement Manual. Cambridge: ABT Books. Federal Highway Administration and Federal Transit Ad- 1992 Involving Citizens in Community Decision ministration Making: A Guidebook. Washington, DC: Program 1994 Innovations in Public Involvement for Trans- for Community Problem Solving. portation Planning. Washington, DC: U.S. Department of Transportation. January . Environmental Justice Resource Center 1996 Public Involvement Techniques for Transporta- 1996 Proceedings of the National Conference on En- tion Decisionmaking. Washington, DC: U.S. vironmental Justice and Transportation: Building Department of Transportation. Summer. Model Partnerships. Atlanta: Clarke-Atlanta Uni- versity. Florida Atlantic University-Florida International University Joint Center for Environmental and Urban Problems 1998 Secondary and Cumulative Impacts of Trans- portation Projects - Final Report. Prepared for the Florida Department of Transportation.

RESOURCES 35 Finsterbusch, Kurt Louis Berger & Associates, Inc. 1980 Understanding Social Impact: Assessing the 1998 NCHRP Report 403: Guidance for Estimating Effects of Public Projects. Beverly Hills, CA: Sage the Indirect Effects of Proposed Transportation Publications, Inc. Projects. Washington, DC: National Academy Press. Finsterbusch, Kurt, Lynn Llewellyn, and C.P. Wolf, eds. 1983 Social Impact Assessment Methods. Beverly Mueller, Beth A. et alia Hills, CA: Sage Publications, Inc. . 1990 Environmental Factors and the Risk for Child- hood Pedestrian-Motor Vehicle Collison International Association for Impact Assessment Occurrence. American Journal of Epidemiology, n.d. Electronic documents. http://iaia.ext.nodak.edu/ 1329( 3):550-560. IAI National Capital Region Transportation Planning Board. Interorganizational Committee on Guidelines and Prin- 1996 A System that Serves Everyone: Attracting Non ciples for Social Impact Assessment traditional Participants into the Regional Transpor- 1994 Guidelines and Principles for Social Impact tation Planning Process. Washington, DC: Metro- Assessment. Washington, DC: U.S. Department of politan Washington Council of Governments. Commerce. National Oceanic and Atmospheric Ad- ministration. Noyes, P. B., 1996 Designing the Right Process for Involving the Public. Resource Papers for the 1996 ITE Interna- tional Conference.

36 ENVIRONMENTAL JUSTICE AND COMMUNITY IMPACT ASSESSMENT FOR TRANSIT AGENCIES: A REFERENCE Program for Community Problem Solving Transportation Research Board Committee A1D04 n.d. Facing Racial and Cultural Conflicts: Tools for 2000 Committee on Public Involvement in Transpor- Rebuilding Community, Second Edition. Washing- tation. Electronic document. http:// ton, DC: National Civic League. www.ch2m.com/TRB_PI/default.asp.

Skidmore, Owings & Merrill Transportation Research Board Committee A1F02 1975 Summary of the Environmental Assessment 2002 Committee on Environmental Analysis in Notebook Series. Prepared for U.S. Department of Transportation. Electronic document. http:// Transportation DOT P 5600.4. The Notebook Series www.itre.ncsu.edu/A1F02/default.htm. contains the following individual documents: Notebook 1: Identification of Transportation Alter- U.S. Agency. natives 1998 Final Guidance for Incorporating Environmen- Notebook 2: Social Impacts tal Justice Concerns in EPA's NEPA Compliance Notebook 3: Economical Impacts Analysis. Washington, DC: EPA Office of Federal Notebook 4: Physical Impacts Activities. Notebook 5: Organization and Content of Environ- mental Assessment Materials U.S. Department of Transportation Notebook 6: Environmental Assessment Reference 1994 Evaluating the Environmental Impacts of Met- Book ropolitan Transportation System Plans. 1998 Community Impact Mitigation: Case Studies. Stoffle, Richard et alia Publication No. FHWA-PD-98-024. Washington, 1981 Establishing Native American Concerns in a DC: Federal Highway Administration: Office of Social Impact Assessment. Social Impact Assess- Environment and Planning. May. ment 65-66(4):9.

RESOURCES 37 Vanclay, F. and D. Bronstein, eds. Wilson, Frank & Associates, Inc. 1996 Environmental and Social Impact Assessment. 1994 NCHRP Report 364, Public Outreach New York, NY: John Wiley & Sons. Handbook for Departments of Transportation. Washington, D.C. Ward, Beverly G., Ph.D. et alia 2000 Community Impact Assessment. Electronic documents. http://www.ciatrans.net. 2001 Community Impact Assessment in Florida Transportation Projects: Case Studies. Electronic document. http://www.cutr.usf.edu/pubs/CIA in Florida.pdf.

38 ENVIRONMENTAL JUSTICE AND COMMUNITY IMPACT ASSESSMENT FOR TRANSIT AGENCIES: A REFERENCE Project Team

FDOT Ed Coven, Manager, Public Transit Office Amy Datz, Project Manager

CUTR Beverly G. Ward, Ph.D., Principal Investigator Kristine M. Williams, AICP, Senior Research Associate Martin Catalá, Research Associate Jeffrey Kramer, Research Associate Jason Winoker, Research Associate Holly Alderman, Program Assistant Grace Hunt, Program Assistant Kimberlee Gabourel, Graduate Research Assistant Jon Godwin, Graduate Research Assistant Chrystal Smith, Graduate Research Assistant 40 ENVIRONMENTAL JUSTICE AND COMMUNITY IMPACT ASSESSMENT FOR TRANSIT AGENCIES: A REFERENCE Photographs by Beverly G. Ward

Public Transit Office Florida Department of Transportation

National Center for Transit Research Center for Urban Transportation Research 42 ENVIRONMENTAL JUSTICE AND COMMUNITY IMPACT ASSESSMENT FOR TRANSIT AGENCIES: A REFERENCE University of South Florida