SEDA-Council of Governments Metropolitan Planning Organization Strategic Plan ADOPTED: FEBRUARY 6, 2015
Document Purpose and Background The SEDA-COG MPO is responsible for a four-year program of nearly $250 million. 1 Like any organization, there exists the tendency to drift, or fall victim to the inbox carefully fulfilling tasks on the regional transportation work program, without properly evaluating the program s effectiveness, moving forward. The development of a strategic plan is intended to help shape future work programs and the region s overall transportation planning direction. The development of a strategic plan in guiding the MPO s planning program is timely, as it immediately precedes or guides the development of two critical planning products for the MPO, those being the regional Long Range Transportation Plan (LRTP), as well as the Unified Planning Work Program (UPWP). The strategic planning process provided MPO members an opportunity to assess the direction of the current program and identify issues demanding attention, as well as corresponding short-term priorities and recommended actions. As part of the development of the strategic plan, MPO staff facilitated a survey of the MPO membership. The survey included a listing of 17 program areas for MPO board members to assess as to their short-term importance to the MPO s work program. The planning team used the survey results to isolate the most strategic program areas of focus for the MPO to further evaluate. The planning team then facilitated a 4-hour follow-up retreat with MPO membership to discuss the priority program areas in greater detail. This draft Strategic Plan represents the culmination of both the survey and retreat process, and provides a meaningful starting point for developing the MPO s future work programs. It also provides an initial look at potential strategies or action items that could be incorporated into a planned update of the regional long range transportation plan. The plan provides an overview of the most 1 2015 Financial Guidance, base allocation. (The addition of CSVT has boosted this number to over $550 million.) FINAL VERSION AS OF FEBRUARY 9, 2015 2
strategic program areas for the MPO to address, including issues demanding attention and offering specific strategies. The plan is intended to be used by the MPO board in supporting the objectives of the MPO. Introduction MPO board members identified the following program areas as the most important for the MPO to address: Central Susquehanna Valley Thruway Economic Development Transportation Funding Bridges/Asset Management Corridor Modernization Freight Movement Miscellaneous/Other The following section summarizes each of these program areas and identifies how each could be advanced, either through the Unified Planning Work Program (UPWP), Long Range Transportation Plan (LRTP), or both. Of the two planning products, the UPWP is the more tactical of the two. Adopted biennially (and revised as needed), the UPWP summarizes the MPO staff s planning activities, as well as those of its partners and other transportation agencies in the region. It authorizes and funds studies across a wide range of needs. The LRTP, as its name implies, takes a longer-term view of the MPO s planning program, and is updated every five years. The LRTP forecasts future conditions and establishes a vision for the development of the regional transportation system over the next 20 years. FINAL VERSION AS OF FEBRUARY 9, 2015 3
Central Susquehanna Valley Thruway (CSVT) The Central Susquehanna Valley Thruway is one of the largest projects on the state s Transportation Improvement Program (STIP). A major capacity-adding project, the new roadway will address a major freight and passenger bottleneck that currently extends through Monroe Township in Snyder County and into Northumberland County just north of the Borough of Northumberland. The improvement is expected to create jobs and improve north-south mobility through the region, but will also introduce land development challenges (e.g., secondary impacts ) that will need to be addressed. As a project with a cost in excess of $300 million (just within the first four years), MPO members recognize that ongoing project communication between the MPO and its member counties and municipalities will be important as the project moves from preliminary engineering to final engineering, construction, and operation. Issues Demanding Attention Strategies or Ideas for Moving Forward UPWP LRTP An earlier land use/transportation study for interchanges along PA 147 should be revisited and examined for application to a broader region. The new roadway will create secondary impacts that have not been planned for. Many think of CSVT as a bypass to Shamokin Dam, yet the roadway will have far reaching implications for the region, affecting municipalities that have not adequately planned for its potential impacts. Many municipalities do not have the funding nor the planning expertise to adequately prepare for the coming changes in development pressure and patterns that will be introduced by the CSVT. o An auxiliary strategy to this would be to consider pursuing special study funding from PennDOT to address secondary impacts around the new interchanges. SEDA-COG should continue to provide technical support to counties on issues related to impacts created by CSVT. SEDA-COG and its partners should take an active role in review of the project EIS reevaluation for such elements as airport lighting, secondary impacts, and detours/project construction phasing, etc. to name a few. Public information is a critical aspect of the CSVT project, given the project s historic on again/off again status. As such, it provides an excellent opportunity for SEDA-COG to re-engage the public SEDA-COG should develop a program to increase the frequency and depth of project updates to its partners and the public. o This strategy includes greater interaction FINAL VERSION AS OF FEBRUARY 9, 2015 4
Issues Demanding Attention Strategies or Ideas for Moving Forward UPWP LRTP around this major capacity-adding project. with the news media and social media updates. o MPO members should assist the MPO staff with flagging opportunities to outreach with the media on a recurring basis. o The MPO should raise awareness of transit options and availability of new park and ride lots as part of project construction. CSVT will create new traffic patterns, affecting the SEDA-COG should remain engaged region s communities. These changes, while eliminating freight bottlenecks and reducing truck throughout project delivery, and into maintenance and operation phases. traffic in downtowns, will introduce new challenges related to land use and operations. o As travel patterns change and reach equilibrium, there will be a need for the MPO to work with PennDOT and its partners at the municipal level to reevaluate the operational functions of affected corridors to ensure they are operating at optimum efficiency. This can be accomplished as part of PennDOT s efforts on Corridor Modernization. o As part of this, the MPO should monitor the need for new or improved access roads and how they can best connect to the network. FINAL VERSION AS OF FEBRUARY 9, 2015 5
Economic Development MPO planners recognize transportation s role not only in improving mobility, but also in improving the region s economic position and competitiveness. Transportation infrastructure and services should improve the vitality of the region s downtowns and urban cores, connect workers to available jobs, and lower shipping costs for freight haulers. The MPO s strategic plan and forthcoming LRTP update will address all of these aspects of transportation. The strategic planning process identified the following issues demanding attention, and resultant strategies for implementation. Issues Demanding Attention Strategies or Ideas for Moving Forward UPWP LRTP SEDA-COG should work with ARC local access road representatives to identify overlapping priorities that could assist in project funding. An inventory of the available funding mechanisms to assist in economic development projects (e.g., Appalachian Regional Commission (ARC), etc.) can provide potential flexibility for funding transportation projects. The identification of priority networks for supporting the region s economic development potential would be a useful planning tool. The region has strategic transportation needs beyond CSVT for increased regional mobility. Collaborate with PennDOT in identifying additional tiers of the Multi-modal Economic Competitiveness Network, as well as a proposed National Freight Network (NFN). Continue to advocate and plan for highway improvements on strategic highway corridors such as US 322 and on I-99 including projects located in adjacent planning areas. FINAL VERSION AS OF FEBRUARY 9, 2015 6
Transportation Funding and Policy The infusion of Federal spike dollars (ARRA in 2009) coupled with the passage of recent state transportation funding acts, including Act 13 of 2012 and Act 89 of 2013 have improved the region s fortunes concerning available funding for transportation infrastructure. However, there remains a limited amount funding for a multitude of transportation demands. SEDA-COG receives approximately 3.7 percent of Pennsylvania s allocation (not including the Interstate Management Program and statewide reserve line items), and the Federal surface transportation reauthorization act (MAP-21) did not provide any appreciable increase in Federal funding when it was passed in 2012. MPO members recognize the need to optimize available funding between the completion of CSVT and addressing the myriad of other transportation needs in the region. Issues Demanding Attention Strategies or Ideas for Moving Forward UPWP LRTP Address potential conflicts of interest by removing applicants from the project selection of other (competing) projects. The Transportation Alternatives Program (TAP) process needs to be modified to ensure project continuity throughout the region. Consider sub-allocating STP funds for TAP-like projects that satisfy regional priorities. More education is needed on the state s new Multimodal Transportation Fund to ensure that the region is proposing the best candidate projects that can successfully compete for these funds. Work with Planning Partners, PennDOT, FHWA, and stakeholders in an effort to ensure equitable distribution of TAP and other funding programs to address local, regional, and statewide needs. Regarding project selection, the MPO could look regionally as to where the next projects should come from, then support applications, potentially utilizing the TAP selection process to help vet potential projects on a regional basis. Use the update of the region s LRTP to raise awareness of the new Multi-modal Fund and related eligibility requirements. As part of the LRTP update, the planning process should include identification of TAP projects that would be strong candidates for Multimodal Fund programming. FINAL VERSION AS OF FEBRUARY 9, 2015 7
Issues Demanding Attention Strategies or Ideas for Moving Forward UPWP LRTP MPO staff could expand its role by educating and engaging project sponsors and encouraging applications from competitive projects. Innovative funding solutions may be necessary to ensure projects are able to be completed. Partnerships for infrastructure investment are becoming increasingly necessary as public solutions become more constrained. Project funding priorities can sometimes be challenging for municipal officials in rural areas. Emerging State priorities may reduce the amount of funding available for transportation such as Act 13 funds - which could be redirected by the new administration. Public-Private Partnerships (P3) opportunities should be considered to complement other funding sources as they arise. The foundation for this was laid through the state s Transportation Funding and Reform Commission. SEDA-COG should provide leadership in educating municipalities on the variety of transportation funding sources available and options (e.g., Automated Red Light Enforcement (ARLE), Green Light-Go, Transportation Investment Generating Economic Recovery (TIGER), TAP, etc.), and ensure a regionally equitable process. The regional LRTP update should include an assessment of the region s multi-modal transportation needs. (This has been accomplished at the State level but has not been disaggregated to a regional/mpo level.) SEDA-COG should ensure that the public and the region s state representatives have a greater awareness of the region s transportation needs. Decision-makers should fully understand their choices and priorities. Potential actions could include development of press releases, development and distribution of a PowerPoint presentation, speaker s kit, and participation in editorial board meetings, to name a few. FINAL VERSION AS OF FEBRUARY 9, 2015 8
Issues Demanding Attention Strategies or Ideas for Moving Forward UPWP LRTP SEDA-COG should collaborate with PennDOT in monitoring the future funding availability and allowable uses for Marcellus-related funds. The MPO should continue to be an advocate for dedicated and sustainable transportation funding. FINAL VERSION AS OF FEBRUARY 9, 2015 9
Bridges As part of the 2015 Transportation Improvement Plan (TIP), the SEDA-COG MPO receives $41.8 million for state system bridges. This represents nearly 17 percent of the MPO s overall base allocation of $249 million for the 4-year period. The region s forthcoming LRTP should seek to quantify the asset management demands of the system as part of a process to balance the economic development and asset management demands for the system. As part of the 2015 TIP, the SEDA-COG MPO receives $12.6 million for off-system bridges, representing just over 5 percent of the MPO s overall base allocation. The following table summarizes the issues and potential strategies for advancing this program area at SEDA-COG. Issues Demanding Attention Strategies or Ideas for Moving Forward UPWP LRTP SEDA-COG should collaborate with PennDOT in investigating the development and administration of an equitable program to recommend bridge projects as part of a bridge bundling program for future planning and programming. Bundling of bridge projects could realize efficiencies in the procurement process and provide economies of scale for state and local government. PennDOT has completed local bridge bundling pilot projects in Washington, Blair and Luzerne Counties. The guidance that PennDOT is currently developing based on these pilots will be instructive in improving the region s bridge inventory. Innovative bridge financing is needed to ensure the region s bridge inventory is maintained to a state of good repair. Information from bridge inspections and local asset data collection needs to help inform planning and programming. SEDA-COG should consider a strategy or program that would serve to bundle maintenance and preservation projects within the region. PennDOT s P3 program will address some of the region s existing bridge needs. Exploring which bridges and how the region has prioritized these needs will help to determine remaining needs and improvement options. SEDA-COG should use the region s recent inventory of 8-20 bridges as part of outreach to municipalities to encourage introductory inspections (or something just shy of an NBIS inspection) and development of a municipal capital improvement program (CIP) for addressing substandard local bridges. SEDA- COG should develop an equitable process for providing funding support for introductory inspections of bridges. Congress has stated that the National Highway FINAL VERSION AS OF FEBRUARY 9, 2015 10
Issues Demanding Attention Strategies or Ideas for Moving Forward UPWP LRTP System should include no more than 10% structurally deficient bridges. Quantifying the percentage locally will assist in the prioritization process. Use the existing systems and funding mechanisms to address bridge needs. Use programs (such as Decision Lens, etc.) to assist with project prioritization and refine evaluation measures over time as priorities change. Provide training/assistance to local municipalities in developing capital plans for local bridges. Consider pursuing possible sub-allocation of TIP funds for eligible local bridges. Investigate potential funding mechanisms that could be tapped for the funding of local bridge inspections. FINAL VERSION AS OF FEBRUARY 9, 2015 11
Corridor Modernization PennDOT defines corridor modernization as An objectives-driven, performance based program to better evaluate, prioritize, plan, deploy, and measure the effectiveness of Transportation Management and Operations (M&O) strategies. For the SEDA-COG region, corridor modernization is primarily focused on traffic signals and Intelligent Transportation Systems (ITS) improvements. Issues Demanding Attention Strategies or Ideas for Moving Forward UPWP LRTP Signal upgrades are necessary Overall modernization of the operations and maintenance of the to alleviate congestion and region s traffic signals should be reviewed to ensure region-wide address safety issues that result mobility and system efficiency. SEDA-COG should continue to from a change in traffic patterns. collaborate with the PennDOT Districts and Central Office as Corridor Modernization evolves and is fully implemented as part of Act 89. SEDA-COG should re-evaluate traffic signal operation needs after CSVT has been completed and traffic has reached equilibrium, particularly along US 11/15, US 522, PA 45, and throughout the CSVT subarea. As SEDA-COG solicits municipalities for candidate projects in updating its TIP, it should include information on success stories from 2014 and 2015 to raise awareness of such programs as ARLE and Green Light-Go for traffic signals. Due to the nature of traffic signal ownership, the operations and maintenance of traffic signals, and supporting funding for those appurtenances, is a state and MPO issue. ITS initiatives by PennDOT would help to modernize heavily traveled corridors in the region and provide much needed information to system users during periods of bad weather or roadway incidents. SEDA-COG should consider investigating the creation of a TIP line item for traffic signals, capitalized with funds from federal and state funding sources. The region should identify any ITS-related needs and coordinate with PennDOT Districts 2-0 and 3-0 to understand statewide ITS plans, needs, and initiatives as they relate to the region. FINAL VERSION AS OF FEBRUARY 9, 2015 12
Freight Movement The needs of the freight community are different from that of the general traveling public. Trucks, trains, aviation service, and pipelines are critical to the regional economy and delivering freight and consumer goods to businesses and residents. Many of the needs of the general traveling public are similar to those of freight carriers and customers. For example, bottlenecks that reduce passenger vehicle travel times also affect those of motor carriers. Some needs are unique to freight only such as freight rail transload facilities or truck turning radii improvements. Issues Demanding Attention Strategies or Ideas for Moving Forward UPWP LRTP State and federal officials do not Include the needs of freight related stakeholders such as have a good understanding of the warehousing and distribution centers in planning studies to be needs and costs related to freight conducted in the region. movement. This can have an effect on the appropriate Include input from other stakeholders such as 3 rd Party Logistics identification of freight related providers (3PLs) and railroads in the identification of freightrelated needs and issues. needs. Truck parking issues require truckers to park on shoulders and ramps which in turn creates safety and environmental concerns. Identification of the Primary Freight Network (PFN) would assist in identifying freight needs on the most traveled freight corridors. Use information and data from the recently completed Statewide Freight Plan to focus on specific freight types and needs and impacts on the SEDA-COG region and to help prioritize corridor improvements on a regional scale (as part of the LRTP process). SEDA-COG should review the needs of the trucking industry as documented in the PA Transportation Advisory Committee s 2007 study on truck access and parking in Pennsylvania and discuss what can be done locally to better accommodate trucks. (PennDOT s P3 Board is currently investigating the viability of a proposed P3 Smart Truck Parking project.) SEDA-COG should coordinate with FHWA and PennDOT Central Office in 2015 on the identification of a Primary Freight Network within the SEDA-COG region. Rail Freight The MPO should continue to work with the PennDOT Multimodal Deputate, Joint Rail Authority, and other stakeholders to attain the desired level of rail freight service throughout the region. FINAL VERSION AS OF FEBRUARY 9, 2015 13
Other Other, more miscellaneous issues related to transportation improvements can have as large of an impact on the mobility of the region as those that have been summarized above. These are related to various issues that impact the movement and safety of users of the region s transportation system. Issues Demanding Attention Strategies or Ideas for Moving Forward UPWP LRTP Municipalities are the primary The LRTP update should identify strategies for improving the point of contact in dealing with coordination between PennDOT and municipalities on competing utilities such as water and sewer improvement schedules between roadways and utilities. services. Municipalities need to consider paving schedules when pursuing utility improvements. University students are increasingly reliant on transit because they are opting to not bring a personal vehicle. Fixed route transit is being scaled back, and those who are not eligible for discounted rates for shared ride services have few transportation options. Make public transportation a more viable transportation alternative. (Only portions of Northumberland County have fixed route public transportation service.) All of the region s counties have completed transit needs studies, but the role of the MPO has been limited. Act 89 required the creation of a shared ride pilot program to test new or different models of delivering and/or paying for shared ride transportation to make it more sustainable into the future. As part of the update of the LRTP, SEDA-COG should consider identifying performance measures that would increase the share of trips that use transit, carpools, and non-motorized forms of transportation. SEDA-COG should work with the region s transit providers to identify areas where transit can best improve accessibility. SEDA-COG should further investigate the potential of participating in a Shared Ride pilot program and possible funding opportunities. (PennDOT will be accepting Letters of Interest to develop a detailed proposal through June 2015.) SEDA-COG should support initiatives for improved customer service through modernization of public transportation operations. FINAL VERSION AS OF FEBRUARY 9, 2015 14
Issues Demanding Attention Strategies or Ideas for Moving Forward UPWP LRTP Ongoing coordination between SEDA-COG needs to revive its program of performing corridor SEDA-COG and the PennDOT Districts will be important for advancing the MPO s safety program. safety audits. The MPO should begin with a prioritized list of corridors. The MPO needs to plan for the improved resiliency of the transportation system. Many community goals throughout the region include the promotion of walkability, the development of bicycle trails, and improved pedestrian accommodation. People are driving less and walking, bicycling, and taking transit more. The region s mature population, as well as its Millennials are avoiding driving as a lifestyle choice. The region s lone Amtrak station is served by the Pennsylvanian, which offers one train daily in each direction. Ridership increased over 9 percent at the Lewistown station from 2012 to 2013, to over 9,000 riders. The Lewistown station is not fully accessible. Ridesharing is an important transportation option with future growth opportunities. SEDA-COG should develop strategies for identifying the components of the transportation system that are most prone to storm and disaster impacts and work toward a more resilient system for all users. SEDA-COG s LRTP update should include strategies aimed at improving bicycle and pedestrian accommodation throughout the region. The LRTP update process should include targeted outreach to these population groups (seniors and Millennials) to learn more regarding their transportation needs and travel preferences. The LRTP process should identify a prioritized network of nonmotorized travel, focusing on the demands for the Amish and Mennonite communities. SEDA-COG should continue to support improvements to the Amtrak station in Lewistown. The range of issues includes frequency of service, bicycle parking, and ADA issues at the station. SEDA-COG should work with transit providers to advance ridesharing and vanpool initiatives and the establishment of park and ride facilities, where needed. FINAL VERSION AS OF FEBRUARY 9, 2015 15
Issues Demanding Attention Strategies or Ideas for Moving Forward UPWP LRTP The MPO has a challenging goal The region s LRTP update should include targeted outreach to of serving diverse populations. various user groups, including the Amish, Latino, persons with disabilities, and farmers, regarding their unique transportation issues and concerns. Aviation SEDA-COG should work with its aviation subcommittee and other stakeholders to identify issues, opportunities, and strategies for the general aviation airports in the region. FINAL VERSION AS OF FEBRUARY 9, 2015 16
MPO Staff Evaluation As part of the strategic planning process, MPO board members were asked how the MPO staff could provide better support to their members respective planning programs. Responses were overwhelmingly favorable, with many citing the high level of service and support received from MPO staff. During the MPO board retreat, there was some discussion on opportunities for improving the level of service MPO staff currently provides. Primary discussion centered on providing more information to the respective boards of county commissioners on transportation matters. Suggested topics included upcoming projects (and especially CSVT status), the optional $5 county registration fee (as provided for by Act 89 of 2013), funding opportunities, and upcoming projects and studies in general. This engagement could be conducted as part of an annual meeting or briefing. It was also recommended that the county commissioners be incorporated as part of the public participation process for the update of the region s long range transportation plan. The SEDA-COG MPO is a multi-county organization, with many competing transportation interests across the region. The multicounty nature of the organization elevates the premium for planning among such a diverse and broad region. As such, there is a need for an equitable planning process, where strong candidate projects are supported, regardless of regional location. As it administers its planning program, there is a need for MPO staff to be guided by clear guidelines as to their level of autonomy with respect to the support and guidance it provides to its member counties and municipalities throughout the region. FINAL VERSION AS OF FEBRUARY 9, 2015 17