HAWAII STATEWIDE TRANSPORTATION PLAN: HAWAII’S MULTI-MODAL AND INTER-MODAL NETWORK VOLUME 2: ISSUE PAPERS 2011 TABLE OF CONTENTS Issue Paper #1: Impact of Federal Planning Requirements (Eight Planning Factors) Issue Paper #2: Climate Change and Sea Level Rise Issue Paper #3: Aging Population and Transportation Issue Paper #4 Fuel and Energy Scenarios for Hawai‘i Issue Paper #5: Land Use Planning Issue Paper #6: Planning & Design: Context Sensitive Solutions (CSS), Complete Streets, Smart Growth, and Transit Oriented Development (TOD) Issue Paper #7: Transportation Security Issue Paper #8: System Preservation and Asset Management Issue Paper #9: Financial Scenarios Issue Paper #10: Environmental Coordination Issue Paper #1 Impact of Federal Planning Requirements (Eight Planning Factors) In Preparation for the Hawaii Statewide Transportation Plan Update Prepared for Department of Transportation State of Hawaii Prepared by SSFM International, Inc. With HNTB 2011 Hawaii Statewide Transportation Plan Update Issue Paper on the Impact of Federal Planning Requirements (Eight Planning Factors) Table of Contents Foreword ..................................................................................................................................... 1 Section 1.0 Background .................................................................................................................. 3 Section 2.0 How the 2002 Hawaii Statewide Transportation Plan Treated the Planning Factors ..... 9 Section 3.0 Treatment of the Factors by the Transportation Planning Programs in Other States .. 13 Section 4.0 Consideration of the 8 Planning Factors in the Preparation for the HSTP Update ....... 19 Section 5.0 Implications of the 2010 Census to Statewide Transportation Planning ...................... 23 Section 6.0 Recommendations for Hawaii Statewide Transportation Plan Update ........................ 25 References ................................................................................................................................... 27 Appendices ................................................................................................................................... 29 -i- Hawaii Statewide Transportation Plan Update Issue Paper on the Impact of Federal Planning Requirements (Eight Planning Factors) -ii- Hawaii Statewide Transportation Plan Update Issue Paper on the Impact of Federal Planning Requirements (Eight Planning Factors) Foreword The Hawaii state transportation planning process is being supported by the development of a series of issue papers. Task 7 of the contract requires examination of emerging issues that will have major impacts on Hawaii’s transportation future along with preparation of Issue Papers for each subject. The emerging issues for Hawaii’s transportation were selected by the Hawaii Statewide Transportation Plan Team as issues which may have a significant impact on Hawaii’s residents and their transportation needs. Many emerging issues are associated with the Federal Planning Requirements, changing trends, as well as shifts in public perception. This issue paper addresses the issue of the impact of Federal Planning Requirements, also known as the “Eight Planning Factors,” on transportation planning. SSFM is the lead consultant for the Hawaii Statewide Transportation Plan (HSTP) update, and they are supported by a team of consultants. This paper’s lead author is HNTB. This “Issue Paper on the Impact of Federal Planning Requirements (Eight Planning Factors)” includes sections on: • Discussion on the history of the Planning Factors in federal transportation planning law; • How the 2002 Hawaii Statewide Transportation Plan (2002 HSTP) treated the planning factors; • A review of other states’ treatment of the eight planning factors in their statewide transportation plans; • Implications of the 2010 Census to HSTP Planning; and • Recommendations for the HSTP Update Issue papers in this series include: Issue Paper #1: Impact of Federal Planning Requirements (Eight Planning Factors) Issue Paper #2: Climate Change and Sea Level Rise Issue Paper #3: Aging Population and Transportation Issue Paper #4 Fuel and Energy Scenarios for Hawaii Issue Paper #5: Land Use Planning Issue Paper #6: Planning & Design: Context Sensitive Solutions (CSS), Complete Streets, Smart Growth, and Transit Oriented Development (TOD) Issue Paper #7: Transportation Security Issue Paper #8: System Preservation and Asset Management Issue Paper #9: Financial Scenarios Issue Paper #10: Environmental Coordination -1 - Hawaii Statewide Transportation Plan Update Issue Paper on the Impact of Federal Planning Requirements (Eight Planning Factors) -2 - Hawaii Statewide Transportation Plan Update Issue Paper on the Impact of Federal Planning Requirements (Eight Planning Factors) Section 1.0 Background The Federal Transportation Law known as the Safe, Accountable, Flexible Efficient Transportation Equity Act: Legacy for Users (SAFETEA-LU) of 2005 requires states to consider eight planning factors in development of their long-range transportation plans. While there are no requirements that these factors have to be evaluated in specific ways, states are expected to demonstrate that the eight planning factors have been taken into account in ways appropriate to the state, current trends, and anticipated conditions. To be clear, no two states have treated the eight planning factors in precisely the same ways, and neither the Federal Highway Administration (FHWA) nor the Federal Transit Administration (FTA) has been prescriptive about how states should treat the planning factors. Rather, the planning factors are intended to ensure that a State plan establishes a robust and resonant policy framework to address current and emerging transportation challenges. Hawai’i’s transportation future will be shaped by a wide range of factors, some of which are more or less in the State’s control (e.g., how to finance improvements) and some of which are outside the State’s control (e.g., sea level rise). The state transportation planning process must consider the wide range of factors simultaneously because the state’s transportation needs and solutions are not established by one, or even a few factors. For example, interaction of the economy, security, and mobility leads to a different and more useful plan than would consideration of only one of those topics. The federal requirement this paper responds to is intended to assure that topics important to all states are considered in the state transportation plan development and any future refinement. The planning factors are listed below in brief terms. A full description of them from the Federal Register is contained in Appendix 1 in this issue paper: 1. Economic vitality 2. Safety 3. Security 4. Accessibility and mobility 5. Enhance the environment, conserve energy, improve quality of life, and promote consistency between planned growth and economic development 6. Integration and connectivity of transportation 7. Promote efficient system management and operation 8. Preserve the existing transportation system Since the passage of the interstate highway program in the 1950’s, the federal transportation planning requirements have focused on the “3 C Process.” The 3 C’s are: • Continuing – Just as conditions, needs, financing, and other topics are not static, the planning process does not end with a single date. -3 - Hawaii Statewide Transportation Plan Update Issue Paper on the Impact of Federal Planning Requirements (Eight Planning Factors) • Cooperative – No single organization or agency is responsible for all transportation and related functions. States, local governments, and regional organizations need to work together to develop workable plans and programs. • Comprehensive – To understand transportation needs and impacts, a wide view of geography, travelers, impacts, economy, and more need to be considered. This means that the development of a plan must take a comprehensive view of the current conditions and future needs. While the federal focus began as a highway program, it has evolved to having a surface transportation emphasis (meaning highway, transit, non-motorized and freight). In the late 1950s through the 1960s, the federal requirements focused on establishing the basis for project proposals (e.g., travel forecasting coordinated with population and employment forecasts). With the advent of the Clean Air Act of 1963, and the more rigorous Clean Air Act of 1970, Federal transportation requirements called for determinations of a plan’s effect on emissions and air quality. However, this has been truer of metropolitan transportation plans than of state transportation plans. Similarly, the Civil Rights Act of 1964 established requirements prohibiting discrimination in a wide range of subjects including transportation. The Federal requirements for state transportation planning were clarified further with the passage of the Intermodal Surface Transportation Efficiency Act of 1991 (ISTEA). With that law’s enactment, states were required to develop a state transportation plan that met certain requirements. The USDOT Transportation Planning Capacity Building Program (TPCB) describes the federal requirements for states as including the following: • Prepare and Maintain a Long-Range Statewide Transportation Plan: Develop and update a long-range transportation plan for the state. Plans vary from state to state and may be broad and policy-oriented, or may contain a specific list of projects. • Develop a Statewide Transportation