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Indianapolis Long Range Transportation Plan Update - Status Report
Click HERE for graphic. Indianapolis Long Range Transportation Plan Update STATUS REPORT REVIEW OF ISTEA METROPOLITAN TRANSPORTATION PLANNING FACTORS December 1993 by: The Indianapolis Metropolitan Planning Organization Department of Metropolitan Development, Planning Division 129 E. Market Street, Suite 500 Indianapolis, IN 46204 Indianapolis Long Range Transportation Plan Update STATUS REPORT REVIEW OF ISTEA METROPOLITAN TRANSPORTATION PLANNING FACTORS December 1993 by: The Indianapolis Metropolitan Planning Organization Department of Metropolitan Development, Planning Division 129 E. Market Street, Suite 500 Indianapolis, IN 46204 FOREWORD Drafts of this report were reviewed by the Study Review Committee of the Long Range Transportation Plan Update. Several members of the committee commented that it would be helpful for the document to contain definitions of some of the technical terms and a list of acronyms used in the report for easy reference. The information found in this foreword is in response to the committee's comments. Questions or comments concerning this report should be referred to: Michael Peoni, Senior Planner DMD, Planning Division 129 E. Market Street, Suite 500 Indianapolis, IN 46204 (317) 327-5151 DEFINITIONS Intermodal - refers to connectivity between modes (auto, bus, rail, air, etc.) as a means of facilitating linked trip making. It emphasizes connections (transfers of people or freight m a single journey), choices (provision of transportation options to facilitate trip making), coordination and cooperation (collaboration among transportation organizations). Multimodal - reflects consideration of more than one mode to serve transportation needs in a given area. Metropolitan Planning Area (MPA) - the area in which the metropolitan transportation planning process must be carried out. Metropolitan Planning Organization - means the organization designated as being responsible, together with the State, for carrying out the continuing, cooperative, and comprehensive metropolitan planning process. Nonattainment Area - refers to areas where air quality standards are not met for transportation related pollutants as determined by the United States Environmental Protection Agency (EPA). Transportation Control Measures (TCM) - refers to measures identified in air quality implementation plans which reduce transportation related emissions be reducing vehicle use or changing traffic flow or congestion. Transportation Improvement Program (TIEP) - a staged multiyear program of transportation projects, excluding planning and research activities. LIST OF TRANSPORTATION ACRONYMS BMS Bridge Management System CAAA 1990 Clean Air Act Amendments CIP Capital Improvement Program CMS Congestion Management System DMD Department of Metropolitan Development FAA Federal Aviation Administration FFY Federal Fiscal Year (Oct. 1 - Sept. 30) FHWA Federal Highway Administration FTA Federal Transportation Administration HPMS Highway Performance Monitoring System IAA Indianapolis Airport Authority IDEM Indianapolis Department of Environmental Management INDOT Indianapolis Department of Transportation IMS Intermodal Facilities and Systems INDOT Indiana Department of Transportation INSTIP Indiana State Transportation Improvement Program IPTCM Indianapolis Public Transportation Corporation/Metro IRTC Indianapolis Regional Transportation Council IRTIP Indianapolis Regional Transportation Improvement Program ISTEA 1991 Intermodal Surface Transportation Efficiency Act LRTP Long Range (Transportation) Plan MDC Metropolitan Development Commission MPA Metropolitan Planning Area MPO Metropolitan Planning Organization PMS Pavement Management System PTMS Public Transportation Facilities and Equipment Management System SFY State Fiscal Year (July I - June 30) SMS Highway Safety Management System SOV Single Occupancy Vehicles TCG The Corradino Group TCM Transportation Control Measure TEA Transportation Enhancement Activity TIEP Transportation Improvement Program TIS Transportation Impact Studies TMA Transportation Management Area TMS/H Traffic Monitoring System for Highways TSM Transportation System Management UNIGOV Unified Government of the City of Indianapolis USDOT United States Department of Transportation UZA Urbanized Area VMT Vehicle Miles of Travel 3-C Continuing, Cooperative and Comprehensive (refers to the transportation planning process) TABLE OF CONTENTS DESCRIPTION PAGE NO. FOREWORD EXECUTIVE SUMMARY INTRODUCTION Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 Metropolitan Planning Area . . . . . . . . . . . . . . . . . . . . . 2 Participants in Long Range Transportation Planning Process . . . . . 5 Indianapolis Metropolitan Planning Organization. . . . . . . . . . . 5 Regional Transportation Council . . . . . . . . . . . . . . . . . . 5 United States Department of Transportation . . . . . . . . . . . . . 5 Federal Highway Administration/Federal Transit Administration. . . . 5 State of Indiana . . . . . . . . . . . . . . . . . . . . . . . . . . 6 Indiana Department of Transportation . . . . . . . . . . . . . . . . 6 Indiana Department of Environmental Management . . . . . . . . . . . 6 City of Indianapolis/Marion County . . . . . . . . . . . . . . . . . 6 Excluded Cities and Towns in Marion County . . . . . . . . . . . . . 6 Other Cities and Counties. . . . . . . . . . . . . . . . . . . . . . 6 Indianapolis Public Transportation Corporation (IPTC)/Metro. . . . . 6 Indianapolis Airport Authority . . . . . . . . . . . . . . . . . . . 7 Private Sector . . . . . . . . . . . . . . . . . . . . . . . . . . . 7 Community Involvement Program. . . . . . . . . . . . . . . . . . . . 8 Financial Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . 9 Air Quality Considerations . . . . . . . . . . . . . . . . . . . . . 9 ISTEA METROPOLITAN PG FACTORS Format . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .10 Factor 1: Use of Existing Facilities . . . . . . . . . . . . . . . .11 Factor 2: Energy . . . . . . . . . . . . . . . . . . . . . . . . . .13 Factor 3: Congestion Management. . . . . . . . . . . . . . . . . . .15 Factor 4: Transportation Policy and Land Use/Development Plans . . .18 Factor 5: Transportation Enhancement Activities. . . . . . . . . . .20 Factor 6: Effects of All Projects. . . . . . . . . . . . . . . . . .22 Factor 7: Access to All Modes. . . . . . . . . . . . . . . . . . . .26 Factor 8: External Connectivity. . . . . . . . . . . . . . . . . . .28 Factor 9: Management Systems . . . . . . . . . . . . . . . . . . . .29 Factor 10: Right-of-Way Preservation . . . . . . . . . . . . . . . .33 Factor 11: Movement of Freight . . . . . . . . . . . . . . . . . . .35 Factor 12: Life Cycle Costs. . . . . . . . . . . . . . . . . . . . .37 Factor 13: Social, Economic, Energy and Environmental Criteria . . .39 Factor 14: Finance Transit Services. . . . . . . . . . . . . . . . .41 Factor 15: Transit Security. . . . . . . . . . . . . . . . . . . . .43 LIST OF MAPS MAP NO. DESCRIPTION PAGE NO. 1 Official Thoroughfare Plan. . . . . . . . . . . . . . . . . . . 3 2 1990 Indianapolis Urbanized Area and Proposed Metropolitan Planning Area . . . . . . . . . . . . . . . . . . . . . . . . . 4 LIST OF TABLES TABLE NO. DESCRIPTION PAGE NO. 1 Matrix of ISTEA Factors and Plan Update Tasks . . . Exec Summary 2 Applicability of 15 ISTEA Planning Factors to Existing Planning Documents and Reports . . . . . . Exec Summary APPENDICES Appendix A - Study Review Committee Appendix B - Study Tasks Appendix C - Metropolitan Planning Area Boundary Documentation Appendix D - Public involvement Information Appendix E - Status of Transportation Control Measures Appendix F - Congestion Management System Content Appendix G - Transportation System Management Report Summary Appendix H - Summary of Indpls. Department of Transportation Pavement System Appendix I - Possible Evaluation Criteria EXECUTIVE SUMMARY INTRODUCTION The Indianapolis Metropolitan Planning Organization (MPO) has been working with a group of transportation consultants in updating the Long Range Transportation Plan for the Indianapolis Metropolitan Planning Area (MPA) as required by the 1991 Intermodal Surface Transportation Efficiency Act (ISTEA). The MPO staff and the consultant team are working with a study review committee consisting of representatives from the Indianapolis Regional Transportation Council (IRTC) and other jurisdictions new to the planning area. The ISTEA requires the consideration of 15 p@g factors in the development of transportation plans and programs. The purpose of this report is to meet the ISTEA requirement by describing the steps to be taken by the MPO in considering the 15 factors during the update of the Long Range Transportation Plan. The response to the 15 factors was developed in conjunction with the Study Review Committee and public meetings were held prior to the submission of this document. The Study Review Committee views this report as a working document subject to change as conditions warrant. It is not intended to limit the MPO or the IRTC from reevaluating how the 15 factors will be considered in the future. RESPONSE The MPO views the ISTEA requirements to consider the 15 factors, place new emphasis on community involvement and ensure financial feasibility as an aid to achieving its goal of producing a long range transportation plan that will function as a working document. As the complex, it is increasingly important to make informed decisions within the context of a continuing, cooperative and comprehensive (3- C) p@g process. Toward this end, the in conjunction with the Study Review Committee, has prepared Technical Report No. 1, "Interim Study Design", which addresses all of the ISTEA requirements. Because final regulations pertaining to ISTEA have not been issued, it is anticipated that the study design will be further refined as the study progresses. The study tasks addressing each ISTEA factor are identified in Table 1. Generally the factors will be considered at each appropriate step in the study process. Special cam will be taken to incorporate the factors in the study's goals and objectives, the evaluation of alternative transportation plans and in determining project priorities. This response also includes a general discussion of the 15 factors and previous planning efforts pertaining to them. Table 2 documents past and ongoing planning efforts pertaining to the 15 factors. In all, the Study Review Committee identified 80 existing planning documents and reports which pertain to the 15 factors. Click HERE for graphic. Click HERE for graphic. Click HERE for graphic. Click HERE for graphic. Click HERE for graphic. Click HERE for graphic. 1.INTRODUCTION The Intermodal Surface Transportation Efficiency Act (ISTEA) of 1991 requires the consideration of 15 factors in the development of transportation plans and programs. The purpose of this report is to meet the requirements of ISTEA by describing the steps which are being taken by the Indianapolis Metropolitan Planning Authority (MTO) to comply with each of the 15 factors and to set the framework for continuing maintenance of the Long Range Transportation Plan in accord with ISTEA and the Clean Air Act Amendments of 1990. This report is one of a series of technical reports to be completed over the next 18 to 24 months in updating the Long Range Transportation Plan for the Indianapolis Metropolitan Planning Area. This report has been prepared in cooperation with a Study Review Committee consisting of representatives from the Indianapolis Regional Transportation Council (IRTC) and other jurisdictions new to the Metropolitan Planning Area (see Appendix A). In addition, five public meetings were held to acquaint the public with the update process and responses to the 15 factors prior to submission to the Federal Highway Administration A). M& report will be presented to and approved by the Technical and Policy Commission of the IRTC before it is presented to the Metropolitan Development Commission (MDC) for adoption. The Study Review Committee views this report, like all products produced under the ISTEA, as a working document subject to change as conditions warrant. It is not intended to limit the NM and the IRTC from reevaluating how they might better consider the 15 factors in updating the Long Range Transportation Plan. Completion of other ISTEA requirements have preceded this report. The MPO has complied with the Air Quality Transportation Conformity requirements of the 1990 Clean Air Act Amendments (November 31, 1991), adjusted the Urban Area Boundary (June 30, 1992)31 reclassified the Federal Roadway Functional Classification System for the Indianapolis Urbanized Area (December 31, 1992) and determined the roadways to be included on the Indianapolis Urbanized Area portion of the National Highway System (April 30, 1993). A consultant team led by The Corradino Group has been retained by the UTO to assist in the update of the long range plan. Members of the consultant team are identified in Appendix A. The current contract covers the initial phases of the planning process as identified in Technical Report No. 1, "Interim Study Design" (see Appendix B). Further refinement and additional consultant services may be necessary as the study progresses. METROPOLITAN PLANNING AREA The study area for the current long range transportation plan includes all of Marion County and portions of Hamilton and Johnson Counties as shown on Map 1. The Indianapolis MPO has included the entire 1990 Census Urbanized Area within its planning process since its official release by the Census Bureau in 1992. This area which is shown on Map 2 also includes Zionsville, Fishers, Westfield and portions of Hendricks and Elancock Counties. Designating a new Metropolitan Planning Area (MPA), which defines the area to be included in the MPO planning process, is required by the ISTEA and is to be determined by agreement between the MPO and the Governor. At a minimum, the ISTEA requires that the NOA boundary include the 1990 Census Urbanized Area and the contiguous areas likely to become urbanized within the 27 year planning forecast period. Generally the expanded urbanized area is to be based on a growth assumption of 1000 persons per square mile. The MPO established a sub-committee of the Long Range Transportation Plan Update Study Review Committee to help determine the NTA boundary. The MPO employed three independent methods to estimate future growth. The three methods were cross checked with one another and were found to support very similar conclusions. The proposed MPA boundary was presented to the NTA subcommittee and underwent several revisions before proceeding to the IRTC technical and policy committees. The proposed MPA boundary was endorsed by the Technical Committee on August 5, 1993. It was initially debated at the Policy Committee level based primarily on perceived programming implications rather than the technical merits of the growth assumptions used. A draft letter from the Federal Highway Administration (FHWA) and a Memorandum of Understanding from the MPO were prepared in response to the programming concerns. The MPO distributed the proposed MPA boundary technical documentation, FHWA letter and MPO Memorandum of Understanding (see Appendix C) to all Technical and Policy Committee members and conducted a special "technical briefing' to answer questions. The proposed NTA boundary was endorsed by the Policy Committee at a joint Technical and Policy Committee meeting on September 15, 1993 and was adopted by the MDC on October 6, 1993. The proposed NTA boundary is viewed as a conservative, yet reasonable estimate of future growth (see Map 2). It encompasses all of Marion County, including the Cities of Beech Grove, Indianapolis, Lawrence, Southport, and the Town of Speedway. The boundary also includes portions of Hamilton, Boone, Hendricks, Johnson, and Elancock Counties, including the municipalities of Fishers, Westfield, Whiteland, New Whiteland, and the Cities of Carmel, Zionsville, Brownsburg, Plainfield and Greenwood. The MPA cones a 1990 population of 985,000 and is projected to increase by 9% to 1,070,000 by 2020. 2 Click HERE for graphic. Click HERE for graphic. PARTICIPANTS IN LONG RANGE TRANSPORTATION PLANNING PROCESS Indianapolis Metropolitan Planning Organization The Metropolitan Development Commission is the designated MPO for the Indianapolis region. As such it is responsible, together with the State and Indianapolis Public Transportation Corporation (IPTC-METRO) for the continuing, cooperative and comprehensive (3-C) transportation planning function required of urbanized areas in order to for federal transportation funds. The NM is responsible for complying with all ISTEA requirements including the development of the Long Range Transportation Plan for the Indianapolis Metropolitan Planning Area. The MPO is also responsible for developing the Unified Planning Work Program, the Transportation Improvement Program (TIP) and the Congestion Management System in cooperation with INDOT. In addition, because Indianapolis is rated marginal for nonattainment of the ozone standards by the Environmental on Agency (EPA), the ISTEA requires the NW to assist the Indiana Department of Environmental Management (IDEM) in developing the transportation control measures of the State Plan (SIP). The MPO together with the State and in cooperation with the IRTC is the transportation policy setting organization for the Indianapolis Metropolitan Planning Area (MPA). Indianapolis Regional Transportation Council (IRTC) The IRTC is a cooperative group composed of representatives of the transportation jurisdictions within the metropolitan area. It serves as an ad hoc advisory committee to the MPO on transportation matters of concern to the jurisdictions within the metropolitan area. In general the IRTC (1) recommends policy for the conduct of the transportation planning program; (2) recommends transportation projects involving federal-aid Surface Transportation Program urban funds; and (3) provides a mechanism for discussion and resolution of local transportation issues. United States Department of Transportation Federal Highway Administration (FHWA)/Federal Transportation (FTA) The FHWA and FTA are non-voting members on the IRTC. They provide guidance in the interpretation and implementation of federal regulations pertaining to transportation planning. FHWA, because it has an office located in Indianapolis, has a greater opportunity to participate in the planning activities of the MPO and is involved with most aspects of the transportation planning process. 5 State of Indiana Indiana Department of Transportation (INDOT) INDOT has the responsibility together with the MPO and IPTC for conducting the 3-C planning process. It has the lead responsibility under ISTEA in developing the management systems required by the act as well as to preparation of a statewide long range transportation plan and a statewide transportation improvement program. The management systems include: (1) highway pavement of Federal-aid highways; (2) bridges on and off federal-aid highways; (3) highway safety; (4) traffic congestion; (5) public transportation facilities And equipment; (6) intermodal transportation facilities and systems; and (7) traffic monitoring system for highways. Indiana Department of environmental Management (IDEM) IDEM has the responsibility to oversee air quality planning and participates in the review of the air quality aspects of the Indianapolis region's long range transportation plans and transportation air quality conformity requirements. IDEM is also the lead agency for compliance with the Clean Air Act Amendments (CAAA) of 1990 and prepares the State Implementation Plan (SIP). City of Indianapolis/Marion County The unified government of the City of Indianapolis (Unigov) encompasses Marion County with the exception of four cities which were excluded when Unigov was formed. The Unigov is responsible for all outside of the excluded cities and all thoroughfares in Marion County including the excluded cities. Excluded Cities and Towns in Marion County The cities and towns within Marion County excluded from Unigov are the Cities of Beech Grove, Lawrence, Speedway, and the Town of Southport. These cities are responsible for streets not on the State highway system or the Office Thoroughfare Plan for Marion County. Other Cities and Counties As part of the NTA, Boone, Hamilton, Hancock, Johnson, and Hendricks counties participate in the transportation planning activities of the region. Individual incorporated cities and towns included in the MPA within these counties are, or will be represented on the IRTC . Indianapolis Public Transportation Corporation (IPTC) METRO IPTC-METRO is responsible for providing the Indianapolis region's public transit service. METRO, as the public transit system operator, is included in the long range transportation planning process and is represented on the IRTC. As the publicly owned transit service provider it is responsible together with the MPO and the State for conducting the 3-C planning process. 6 Indianapolis Airport Authority The Indianapolis Airport Authority is the Public Agency responsible for the operation of the Indianapolis International Airport, the regions commercial Air Carrier airport, and most of the regions reliever airports. Greenwood and Shelbyville operate their own municipal airports. The Airport Authority is an active participant on the IRTC. Private Sector Private taxi operators and specialized services are major providers of transportation to the transit dependent. IPTC-Metro is now contracting with the private sector to operate its Open Door service to the disabled. The private sector is represented on the IRTC and participates on a number of planning committees with the MPO. 7 COMMUNITY INVOLVEMENT PROGRAM In addition to consideration of the 15 factors, ISTEA requires the metropolitan transportation planning process to include provisions to ensure early and continuing involvement of the public in the development of plans and TIPS. The MPO has been discussing the ISTEA requirements at every opportunity with all interested parities since early 1991 in anticipation of more actively involving the community in the transportation planning process. The MPO fully embraces the requirement for increased community involvement and views it as essential to developing a long range transportation plan that will function as a working document. Unless all affected parties have confidence in and feel ownership toward the long range plan, it will not be used to its fullest potential in guiding the transportation future of the Indianapolis Metropolitan Planning Area. The MPO conducted a series of public meetings during the week of September 13, 1993 at five locations throughout the Metropolitan Planning Area. The purpose of the meetings was to acquaint the public with the Long Range Transportation Plan update and to solicit their input. News releases and an informational newsletter were distributed in advance of the public meetings. The newsletter was sent to over 1000 agencies, organizations and individuals throughout the Metropolitan Planning Area identified by the members of the Long Range Transportation Plan Study Review Committee as having a transportation interest. The meetings included an overview of the long range transportation plan update process including the 15 metropolitan planning factors. Time was provided for questions and a questionnaire was distributed at each meeting. The purpose of the questionnaire was to solicit opinions on how to involve the public in the transportation planning process and to provide the opportunity for the public to identify transportation challenges and solutions. See Appendix D for a copy of the meeting agenda, informational newsletter and questionnaire. The MPO is in the process of reviewing the community input from the questionnaire. Any conclusions that can be drawn from the questionnaires will be reflected in the plan update. In terms of an ongoing community involvement program, the MPO is recommending the establishment of a Citizen's Advisory Committee which would have continued involvement with the 3-C planning process. This recommendation has received a favorable response from the Study Review Committee and the IRTC. The MPO believes an established committee, representative of the metropolitan area will provide the greatest opportunity for informed community input and more active public participation. The development of a community involvement program is addressed in Task 2 of the "Interim Study Design". Anticipated modifications to the interim study design will specifically address the community involvement requirements as contained in "Proposed ISTEA Metropolitan Planning Regulations" published in the Federal Register on March 2, 1993. 8 FINANCIAL PLAN The ISTEA requires that the long range transportation plan include a financial plan which demonstrates that the funding necessary to supplement the transportation improvements in the plan, over the life of the plan, is expected to be available. In addition, for nonattainment areas the plan must address the financial resources necessary to ensure compliance with the attainment of clean air requirements. The proposed rule indicates that at a minimum the financial plan must address estimated revenues and strategies for ensuring their availability for implementing, operating and maintaining all projects. In addition, innovative financing such as private participation in both capital and operating expenses would be considered. The financial plan is viewed by the MPO as a critical component to achieving a feasible transportation plan for meeting the future transportation needs of the Indianapolis Metropolitan Planning Area. A financially constrained plan will strengthen the relationship between the long range plan and the TIP by requiring study participants to identify the most needed projects as part of the planning process. Debating the merits of projects within the context of developing the long range plan will provide the opportunity for testing options and possibly identifying better solutions. A financially constrained plan will also encourage study participants to look more closely at less costly operational demand management type improvements. Task 15 of the Interim Study Design addresses the requirement for a financial plan. The bottom line to this effort will be a financially feasible plan based on life cycle costs of proposed projects and estimated revenues. AIR QUALITY CONSiDERATIONS The 1990 Clean Air Act Amendments (CAAA) require greater integration of transportation planning and air quality planning, particularly for areas designated as nonattainment by the Environmental Protection Agency (EPA). Marion County is currently classified as marginal for non-attainment of the ozone standards and a sixteen-block area in the central business district is classified for non-attainment of the carbon monoxide standards. However, the area has recently qualified to have the ozone classification rescinded and staff of the Indiana Department of Environmental Management (IDEM) and the City are preparing the necessary documentation for consideration by EPA. The MPO staff work closely with staff of the Indianapolis Air Pollution Control Division (APCD), IDEM and the Indiana Department of Transportation (INDOT) on issues pertaining to air quality. In the next few months IDEM will be updating the State Implementation Plan (SIEP) which documents the actions that are necessary for the area to meet air quality requirements. The SIEP contains Transportation Control Measures (TCM's) which must be implemented to ensure that the requirements are met. Appendix E of this report contains a status report on the existing TCM's for the Indianapolis area. 9 2. ISTEA METROPOLITAN PLANNING FACTORS The ISTEA requires 15 Metropolitan transportation plans and programs pursuant to 23 U.S.C. Section 134. This section of the report identifies each factor and outlines how it is to be considered by the MPO as it completes the detailed update of the Long Range Transportation Plan for the Indianapolis Metropolitan Planning Area. For ease of review, the response to each of the 15 factors follows the outline presented below. ISTEA Definition Statement of each factor as defined in the ISTEA. FHWA - Region 5 Guidance FHWA - Region 5 provided the MPOs within the Region suggestions as to how they might respond to each of the 15 factors. This sub-section states the guidance provided. MPO Response This sub-section succinctly states how the factor is to be addressed in the long range transportation plan update. Status Report This sub-section provides general discussion of the factor and describes how the factor has been addressed in the past. It also identifies completed reports and ongoing activities completed reports pertaining to the factor. 10 FACTOR 1: USE OF EXISTING FACILITIES ISTEA Definition Preservation of existing transportation facilities and, where practical, ways to meet transportation needs by using transportation facilities more efficiently. FHWA - Region 5 Guidance Possible Short Term Actions: Preservation:Inventory needs; classify list of projects by investment categories; report status; adopt policies. Efficiencies:Assess extent that LRP investments are for better operations/management of existing system. Possible Long Term Actions: Preservation:Use output of management systems to give due priority to system preservation projects. Reflect commitment of resources for preservation in the Financial Plan. Efficiencies:Use output of CMS to identify efficiency improvement needs and program these under proper priority. MPO Response The MPO will evaluate the effectiveness of short range transportation measures such as signal timing and intersection improvements before recommending the widening of existing roadways or the construction of new roadways in the update of the long range transportation plan. This activity is included in Technical Report No. 1, "Interim Study Design", Task 12, "Develop Alterative Modal Plans,' (see Appendix B) and will be further detailed in the upcoming modification of the study design. Status Report The primary activity currently taking place on a regular basis is the development and refinement of the Transportation System Management (TSM) Process report. The TSM, updated on an annual basis, focuses on improving and preserving the existing transportation system through solutions to immediate transportation problems, better management of transportation, maximization of urban mobility and consideration of all modes of surface transportation as a coordinated transportation system. Basic to the TSM process is community problem 11 identification, monitoring and surveillance, TSM strategy determination, problem indicator measurements, specific problem analysis and post-project evaluation. The TSM document is prepared by the MPO in cooperation with the Indianapolis Regional Transportation Council. Historically, the TSM and the Long Range Transportation Plan have been independent of one another. Both the TSM and the Thoroughfare Plan identify needed projects and establish priorities as well as provide the planning support for projects included in the Indianapolis Regional Transportation Improvement Program (IRTIP). In Factor 1, ISTEA stresses the importance of getting the most of and preserving prior infrastructure, investments as part of the long range transportation planning efforts. The MPO intends to bring together the short range and long range planning efforts to achieve the greatest benefit from the existing transportation system. The reports listed below document the planning efforts pertaining to Factor 1. These reports are a result of ongoing efforts and are updated on a regular basis. Transportation System Management (TSM) Process Report - Nov. 1991 Street Facilities Inventory - Nov. 1992 Indianapolis DOT (IDOT) Pavement Management Program - in progress IDOT Capital Improvement Program Indiana Department of Transportation (DMI) Highway Improvement Program - April 1993 INDOT Indiana Statewide Transportation Improvement Program (INSTIP) - to be approved October 1993 Comprehensive Plans Indianapolis Marion County Thoroughfare Plan - March 1991 Hamilton County Thoroughfare Plan - March 1991 Johnson County Thoroughfare Plan - March 1991 Indianapolis Airport System Plan Update Transportation Impact Studies Guidelines for Proposed Development - September 1990 Traffic Impact Analysis, City of Carmel and Clay Township - June 1993 Traffic Impact Study - I-65 Corridor, 1989 - 1990 Highway Performance Monitoring System, 1991 12 FACTOR 2: ENERGY ISTEA Definition The consistency of transportation planning with applicable Federal, State, and local energy conservation programs, goals, and objectives. FHWA - Region 5 Guidance Possible Short Term Actions: Review national and state energy policy; determine implications on transportation; assess current and future response needs; report. Possible Long Term Actions: Reflect in the LRP the adoption of policy and procedures for ensuring consistency with energy conservation plans. MPO Response Energy consumption will be calculated by the MPO as an evaluation measure for each transportation alternative developed as part of the long range transportation plan update and for determining project priorities. This will ensure the recommendations from the long range transportation plan update reflect energy conservation goals. This activity is included in Technical Report No 1, "Interim Study Design", Task 12 (Develop Alternative Modal Plans) and Task 13 (Evaluate Plans in Terms of Cost-Effectiveness and ISTEA Requirements). Status Report While there is Federal legislation relating to vehicle fuel efficiency for new vehicles, and energy efficiency standards for heating and air conditioning of buildings, there are no state or local regulations or policies relating to energy and transportation planning. Past federal planning guidance has encouraged reduced energy consumption. In 1992, the State of Indiana organized an effort to define the elements of an energy policy for the state. The Governor appointed a 50 person working group, chaired by the Lt. Governor, called the Indiana Energy Policy Forum. The Forum established several subcommittees with one addressing energy issues related to transportation. The Forum made policy recommendations which are now being addressed at the executive level. 13 There have been no recent local efforts regarding energy policy. Previous local energy policies date to the early 1980's. Air quality, however, has received much attention locally in recent years which indirectly impacts energy consumption. Almost any measure that would reduce the air pollution burden also would reduce energy consumption. Such measures usually revolve around reduced use of single occupancy vehicles (SOVS) and in use of public transportation. The calculation of fuel and energy consumption is usually based on vehicle miles of travel (VMT). VMT is usually based on the travel model, allowing easy calc@on of estimated energy consumption. Energy consumption is y proportional to VMT. Thus, alternatives that reduce VMT through reduction of the use of SOVS, use of public transportation systems, providing efficient and direct connections for major travel movements, and land use policies that discourage urban sprawl tend to decrease energy consumption. Estimation of the energy consumption associated with each alternative will provide a quantitative measure of energy efficiency for the proposed plan. The reports listed below document the planning efforts pertaining to this Factor 2. Technical Memorandum No. I - Energy Conservation Planning, Status and Objectives of Public Programs for Energy Conservation Planning,' DMD, March 1981 Technical Memorandum No. 2 - Energy Conservation Planning, "Projections of Highway Fuel Consumption in the Indianapolis Regional Transportation Study Area," DMD, August 1981 Transportation Energy Contingency Plan for the Indianapolis Urbanized Area, DMD, July 1982 Recommendations of the Indiana Energy Policy Forum of 1992, Report of the Indiana Energy Policy Forum 14 FACTOR 3: CONGESTION MANAGEMENT ISTEA Definition The need to relieve congestion and prevent congestion from occurring where ft does not yet occur. FHWA - Region 5 Guidance Possible Short Term Actions: Inventory and report on current congestion management aspects of LRP. In areas, indicate how TCMs and other operational management strategies are being implemented. Possible Long Term Actions: Develop and implement a congestion management system; reflect in the LRP CMS - identified strategies. MPO Response Reducing congestion is one of the primary objectives of the long range plan. Thus congestion management will be considered throughout the update process and will be reflected m the evaluation measures for system alternatives and project priorities. In addition, as status in Factor 1, the effectiveness of short range transportation measures will be considered in the update of the long range plan before recommending additional capital intensive improvements. These activities are included in Technical Report No. 1, 'Interim Study Design' Task 4 (Determine the Boundary of the New Study Area),.Task 5 Determine Methods for Travel Model Update), Task 7 (Collect Roadway Data and Traffic Counts for Model Calibration), Task 11 (Identify System Deficiencies), Task 12 (Develop Alterative Modal Plans), Task 13 (Evaluate Plans in Terms of Cost-Effectiveness and ISTEA Requirements) and Task 14 (Develop Future Multimodal Plan). Congestion management will be addressed continually through the annual update of the Congestion Management System Report. Status Report As a Transportation Management Area (TMA), the Indianapolis MPO is required to prepare a Congestion Management System (CMS) that is part of a state-wide CMS. The CMS is to provide for the effective management of new and existing transportation facilities through the use of travel demand reduction and operational management strategies. Further, the process is 15 to provide information on transportation system performance to decision makers in selecting and implementing cost-effective strategies so that traffic congestion is alleviated and the mobility of goods and persons is enhanced. Because a fully operational CMS is not required before Federal fiscal year 1995, federal guidance is provided on the phase-in process. During the phase-in plan development process, the CMS is to include an analysis of transportation system management strategies to make more efficient use of the existing transportation system and an assessment of all reasonable travel demand reduction and operational management strategies corridor in which a traffic project is located. Further, as a part of the analysis, the project must include reasonable provisions to manage the proposed improvement to make the most efficient use of it. Likewise, the commitment of the State and MPO to implement other management strategies in areas of need is important. Being a part of the transportation planning process for metropolitan areas, the travel demand reduction and operational management strategies identified by the CMS are to be included in the Long Range Transportation Plan and implemented through the Transportation Improvement Program on a project-by-project basis (see Appendix F). The most significant effort to date that relates to the purpose and content of the Congestion Management System is the current Transportation System Management (TSM) Process Report completed in November of 1991. The 1991 TSM Report documents transportation system performance characteristics; documents traffic operation/signalization improvement efforts; and describes efforts relating to transportation control measures such as ride sharing, parking strategies, and bicycle and pedestrian planning. Appendix G provides more discussion of the MPO's TSM document. Data is collected on a continuing basis to support the TSM process. The Indianapolis Department of Transportation has had a traffic counting program for thoroughfares that operates on a three-year cycle, and the Indiana Department of Transportation has had a similar program for Interstates and State Routes which operates on a four-year cycle. Also, the Indianapolis Police Department and the State Police have had an ongoing accident reporting program for decades. The Indiana Department of Transportation presently has a computer roadway characteristics inventory system jurisdiction, functional, cross- section and geometric characteristics) and a computerized Highway Performance Monitoring System (BPMS). The long range planning activities will build upon the TSM Process Report completed in 1993 to more effectively address viable strategies for congested corridors and to ensure integration of the CMS strategies into the IRTIP, Long Range Plan and project-by-project conformity analyses. Several of the jurisdictions within the Indianapolis are managing congestion through the use of transportation impact studies which assess the impact of proposed development on the transportation system and make recommendations for maintaining acceptable levels of service or reducing the intensity of development. 16 The reports listed below document the planning efforts pertaining to Factor 3. Transportation System Management Process Report, 1991 Applicant's Guide: Transportation Impact Studies for Proposed Development, 1990 Indianapolis Subarea Planning Study, 1988 West 16th Street Corridor Study, 1988 Michigan Road Corridor Study, 1984 Traffic Impact Analysis, City of Carmel and Clay Township, 1993 Traffic Impact Study - 165 Corridor, 1989-1990 17 FACTOR 4: TRANSPORTATION POLICY AND LAND USE/DEVELOPMENT PLANS ISTEA Definition The likely effect of transportation policy decisions on land use and development and the consistency of transportation plans and programs with the provisions of all applicable short and long-term land use and development plans. FHWA - Region 5 Guidance Possible Short Term Actions: Qualitative evaluation of consistency between LRP and land use plans; determine extent LRP is serving existing land development vs. opening access to new development. Possible Long Term Actions Integrate transportation and land use planning in the modeling and in the evaluation of investment needs. MPO Response The MPO will review all existing land use plans and thoroughfare plans for the jurisdictions within the Indianapolis Metropolitan Planing Area. The land use plans will be used m developing future year social-economic forecasts in cooperation with the local jurisdictions. Inconsistencies between the land use plans and the regional transportation plan will be addressed as part of the update process. The policy implications of transportation decisions on land use will be discussed in the context of developing goals and objectives for the long range transportation plan update. Development of the goals and objectives will involve the MPO, IRTC and the public. The impact transportation proposals have on land use will be considered in the evaluation of system alternatives and the establishment of project priorities. These activities are included in Technical Report 1, "Interim Study Design" Task 5 (Transportation Enhancement Activities), Task 8 (External Connectivity) and Task 13 (Social, Economic, Energy and Environmental Criteria). The tasks will be further refined in upcoming modifications to the study design as required to specifically address this factor. An ongoing determination of the consistency between land use and transportation plans will be achieved through the transportation impact study process. 18 Status Report All jurisdictions within the Metropolitan Planing Area have some soft of land use plan and thoroughfare plan. Indiana State law requires that comprehensive plans have a transportation element. As a result, transportation issues are generally discussed as an integral factor in the development of comprehensive plan recommendations. For example, in Marion County, detailed transportation information is provided as part of the land use inventory for the Comprehensive Plan updates. This information includes existing and future functional classification for all thoroughfare plan segments, proposed transportation projects, and existing as well as projected levels of service. The impact of land use on the transportation system can be seen most vividly around the regional shopping centers. Conversely, the impact of the transportation system on land use can be seen most clearly around interstate interchanges. The need to balance land use with transportation to ensure an acceptable level of service has caused some jurisdictions, including Indianapolis, the Indiana Department of Transportation, Carmel and Fishers to request transportation impact studies as part of rezoning and permit applications. Transportation impact studies have been found to be effective decision making tools. Observation of the development process in the region finds that sewer and sewage treatment availability tend to drive land development with more force than roadway construction or thoroughfare planning. The reports listed below document the planning efforts pertaining to Factor 4. Comprehensive Plans Thoroughfare Plans Traffic Impact Study - I-65 Corridor, 1989-1990 Traffic Impact Analysis, City of Carmel and Clay Township, 1993 Applicant's Guide - Transportation Impact Studies for Proposed Development, Sept., 1990 Department of Community Development Area Suitability Report, Carmel, 1992 Department of Community Development Planing Summary Report, Carmel, 1992 S-1 Zone Planning Study Consultant Team Reports, 1992 Indianapolis Corridor Planning Study, 1981 19 FACTOR 5: TRANSPORTATION ENHANCEMENT ACTIVITIES ISTEA Definition The programming of expenditures on transportation enhancement activities as required in section 133. FHWA - Region 5 Guidance Possible Short Term Actions: inventory enhancement needs and program them in MT subject to State criteria for project selection. Possible Long Term Actions. Revise TP to include resources to be invested in enhancement. MPO Response The Long Range Transportation Plan update will include a mechanism for the review and selection of TEA projects. Technical Response No. 1, "Interim Study Design," describes the activities that will be used to update the plan. TEA activities will be addressed in Task 2 (Coordinate with Applicable Federal, Local, and State Agencies), Task 14 (Develop Future Multimodal Plan) and Task 15 (Develop the Financial Plan). The Interim Study Design will be modified to include more specific references to TEA projects. Status Report The Indiana Department of Transportation (INDOT) has developed a policy for the evaluation and selection of Transportation Enhancement Activity @) projects in the state of Indiana. Projects are selected on a statewide competitive basis after review by the Indiana Department of Natural Resources, the Indiana Department of Commerce and (INDOT. The Policy includes general guidelines for the type of project that qualifies for TEA funds, requires that the project demonstrate a genuine contribution to transportation by meeting one of three qualifying linkage requirements (functional, proximity, impact) and notes that preference will be given to projects which are ready for construction or land acquisition, enhance the state's travel tourism programs, satisfy more than one linkage requirement, satisfy more than one qualifying activity requirement and will provide significant connectivity among transportation facilities. 20 The MPO solicited projects from various groups within the Indianapolis Urbanized Area that had either expressed Interest m enhancement funds or those groups the UTO believed might have interest in the program. The six (6) projects received by the UTO were submitted to INDOT for consideration during the State Fiscal Year 1993. Those projects have been programmed in the 1994-1996 Indianapolis Region Transportation Improvement Program (IRTIP) and have been approved by the MPO for their regional significance. The Long Range Plan will include a bicycle and plan to encourage non- motorized transportation and to provide planning support for TEA projects. The reports listed below document the planning efforts pertaining to Factor 5. 1993 IRTIP INDOT'S Policy MPO's Information Packet The Carmel Greenway Corridor Indianapolis Greenway Corridor System, 1993 Monon Rail Corridor Planning Process, 1993 Bicycle User Map 21 FACTOR 6: EFFECTS OF ALL PROJECTS ISTEA Definition The effects of all transportation projects to be undertaken within the metropolitan area, without regard to whether such projects are publicly funded. FHWA - Region 5 Guidance Possible Short Term Actions: Inventory and report on scope of private sector transportation development/investment; and on the potential impacts of these on the public transportation infrastructure. Possible Long Term Actions: Adopt process for considering the effects of all urbanized area transportation projects in system efficiency and reflect in LRP decisions. MPO Response The Long Range Transportation Plan update will consider all transportation projects, public and private, regardless of their funding source. Technical Report No. 1, "Interim Study Design," describes the activities that will be used to update the plan. Task 13 (Evaluate Plans in Terms of Cost-Effectiveness and ISTEA Requirements) outlines a process for evaluating alternative transportation plans. All existing transportation projects, regardless of the funding source and regardless of whether they are public or private, and all future projects to the extent that they can be anticipated, will be included in this evaluation and cost- effectiveness process. The Interim Study Design will be modified to include a more specific reference to the consideration of all projects. Status Report In the past, long-range transportation planning efforts usually have been concerned only with arterial and urban transit projects that would require public funding. ISTEA requires the scope of the long- range plan to be extended to transportation projects that are funded through sources other than the Federal Highway Administration (FHWA) and the Federal Transit Agency (FTA), including the Federal Aviation Administration (FAA), state and local funding sources, and the private sector. 22 Efforts related to several significant issue areas pertaining to Factor 6 include: Development of new subdivision streets. Regulation of subdivision streets is a local responsibility tied closely to local land use and zoning policies. Subdivision regulations from each of these local agencies prescribe standards for construction, right-of-way, set-back, geometries, etc. One major impact of developing new subdivision is that they usually become the responsibility of local government to maintain, which consumes financial resources. Although they do not necessarily improve traffic flow in the MPA, the future financial impact of new subdivision streets and their impact on the long-range plan will be estimated on the basis of historical trends and information gathered from the pavement management system. This estimate will be considered in all assessments of transportation system efficiency. If agreement can be reached among the local governments, it would be desirable to have uniform regulations for new subdivision streets throughout the MPA. Transportation impact studies and mitigation. Transportation impact studies are required by local regulations for some cities in the MPA. The Cities of Indianapolis and Carmel request transportation impact studies as part of the development process. The Indiana Department of Transportation also requests transportation impact studies. The State of Indiana has enabling legislation allowing localities to impose transportation and other impact fees providing that appropriate justification studies are performed. The Town of Fishers enacted a transportation impact fee ordinance in 1991 and has been collecting fees since 1992. Highway networks will be updated periodically to reflect improvements to the highway systems that are made as a result of traffic impact studies and the collection of impact fees. Impact fees will be considered in the analysis of existing and potential revenues. If agreement can be reached among the local governments, it would be desirable to have a uniform system for traffic impact studies and mitigation throughout the MPA. Local transportation projects - Local transportation projects include roadway improvements financed not only by federal sources, but also from general obligation and revenue bonds, the wheel tax, and other local sources. City of Indianapolis projects are listed in the 1993- 1995 Indianapolis Capital Improvement Program which is updated continually. Other local agencies also have local projects. Because of the requirement for examining all projects in conjunction with air quality analysis, all local transportation projects, including new roads, widening and reconstruction will be included in air quality analyses. Airport planning - Major expansion activity is underway at the Indianapolis International Airport, particularly activities related to the United Airlines maintenance facility. Runways are being extended and added, businesses and facilities are being constructed, and the air passenger terminal will be relocated and enlarged, all in conformance with the Airport Master Plan. The Airport Master Plan recommends the improvement of nearby roadways and the construction of a new interchange to serve the relocated terminal. Feasibility and justification studies are underway or have been completed. 23 Airport planning should be reflected in the travel modeling process in trip generation for person trips and freight. The Long Range Transportation Plan should consider the need to provide adequate modes, capacity, and location of access to the airport. Rail Planning - The Indiana Department of Transportation (INDOI) Intermodal Division maintains inventories and plans for intermodal facilities, including railroads. The most recent plan for rail transportation is the Indiana Rail Plan, 1987 Update. This report addresses the history and future of passenger and freight transportation for Indiana. The Rail Plan also provides an inventory of facilities, and outlines policies pertaining to statewide railroad systems. The State Rail Plan is currently in the process of being updated. The Long Range Transportation Plan will consider any improvements or changes to the rail system that could impact the overall transportation system. impacts are more likely to be a result of do of rail lines than improvements. Abandonment could result in the availability of needed right-of-way, the elimination of grade crossings, elimination of existing or planned grade separations, and changes in rail traffic on other lines or changes in truck traffic to handle freight from abandoned lines. These and other issues relating to rail transportation could be addressed in an update of the Urban Goods Movement Study for the Indianapolis Region. Parking facilities - Parking facilities have the potential for causing both 1 roadway congestion, and encouraging use of single-occupant vehicles. The Long Range Plan should consider the location of parking facilities with respect to traffic congestion, and overall parking supply policies. Abundant, inexpensive parking discourages the use of public transportation, carpools, and vanpools. The Long Range Plan should define a parking supply and cost policy for the MPO. The reports listed below document the planning efforts pertaining to Factor 6. Interchange Justification Report - Task Force - MSE 12-31-92 Bridgeport Rd. Alignment Study - IDOT - BL&N 1-89 Planning & Relocation Study - Bridgeport Rd. - IAA _ BNTB 10-91 UAL Traffic and Parking Lot Study - FSB - PK&G 7-92 Transportation Impact Study UAL MOC III - IDOT - PK&G 12-92 Raceway Rd. Alignment Study - Hendricks Co. - SEG Stafford Rd./Six Points Rd. Study - Hendricks Co. - D E M Six Points Rd. Connector - IAA - BL&N 8-4-92 US 40 & New Haven Traffic Signal - IAA - RWA 3-7-88 Corridor Study - DMD - GFC&C 6-81 IAA Surface Transportation Plan - IAA - HNTB 5-1989 Potential Interchange Portfolio - INDOT - MTA 1989 AIDA Access & Runway Study - IAA - HNTB 2-5-93 Thoroughfare Plan - Marion Co. - DMD 3-6-91 Transportation System Management Plan 1992-96 - DMD 11-91 IRTIP 1992-96 - DMD 7-91 Reassessment & Refinement of Proposed Roads - DMD - SCA 2-88 Year 2000 Travel Demand - DND - 12-76 24 Hendricks Co. Master plan of Thoroughfares - HC - RWA 61 IIA Channelization/Signalization H.S. Rd. - IAA - RWA 44-86 Urban Goods Movement Study - DMD - WSA 12-31-80 Minnesota/Washington St. Corridor Study - DMD 5-90 Airport Industrial Development Plan - DMD 8-90 Decatur Twp. Comp. Land Use Plan - DMD 12-4-91 Wayne Twp. Comp. Land Use Plan - DMD I Hendricks Co. Comprehensive Plan - H. C. - 8-15-83 ILA Master plan update - IAA - HNTB 10-90 Part 150 Noise Compatibility Study Update - IAA - L&B 4-92 Regional Center Planning Study - DMD Regional Center Parking Study Annual Update - DMD Indianapolis Capital Improvement Program - IDOT Indiana Rail Plan, 1987 Update -łApplicant's Guide for Transportation Impact Studies for Proposed Development - DMD Traffic Impact Analysis, city of Carmel and Clay Township, Carmel - A&F, 1993 Traffic Impact Study - I-65 Corridor - Greenwood - PKG 1989-1990 25 FACTOR 7: ACCESS TO ALL MODES ISTEA Definition international boarder crossings and access to ports, airports, intermodal transportation facilities, major freight distribution routes, national parks, recreation areas, monuments and historic sites, and military installations. FHWA - Region 5 Guidance Possible Short Term Actions: Ensure that travel models recognize these major trip generators; adopt 'level playing field' in needs assessment. Possible Long Term Actions: Reflect consideration to multimodal solutions to access needs in the TP listed investments. MPO Response The MPO will examine access to special generators as part of the long range transportation update. The need to provide access to special generators will be reflected in the evaluation measures for system alternatives and project priorities. Work on special generators will be accomplished in Task 5 (Determine Methods for Travel Model Update) and Task 9 (Calibrate 1990 Model). Access and connectivity will be considered in Task 12 (Develop Alternative Model Plans). These tasks are described in Technical Report No. 1: "Interim Study Design". Status Report An important aspect of the plan updating process will be to include special generators within the update of the Indianapolis Travel Demand Model. Special generators identified at this stage in the Model update are: Glendale Mall Castleton Square Mall Greenwood Park Mall l.U. Medical Center/l.U.P.I. White River State Park Indianapolis International Airport Lafayette Square Mall Washington Square Mall Keystone At The Crossing 26 The intermodal components of this region have been identified and to a considerable extent evaluated through a series of component specific studies. INDOT, MPO, the Indianapolis Airport Authority, and the City of Indianapolis have initiated the component studies with the and are responsible for the policy implementation of the findings. Compliance requirements of ISTEA will necessitate coordinated planning and policy implementation. There are on-going efforts to coordinate plans that are developed for Marion County. Within the planning Division coordination occurs on a regular basis between comprehensive planning, parks planning, sub-area planning and transportation planning. Likewise, efforts are made to coordinate plans with jurisdictions outside Marion County. Coordination with INDOT on the state rail plan and the aviation system plan will need to occur as part of the long range transportation update. Likewise the urban goods movement study will need to be reviewed for necessary updating. In addition, an examination of the reuse plan for Fort Benjamin Harrison, plans for the Naval Avionics Center and plans for commercial busing activities will need to occur during the long range plan update. Coordination with intermodal transportation facilities, recreation areas and monuments and historic sites will need to be emphasized in the long range plan update process. More of an intensive effort will be made to coordinate transportation plans with other jurisdictions, especially those outside Marion County and with other facilities/modes. The reports listed below document the planning efforts pertaining to Factor 7. Indiana Rail Plan - 1987 Update Urban Goods Movement Study _ 1980 Transportation System Management (TSM) Process Report (designated truck routes)- Nov., 1991 1991 Fort Benjamin Harrison Reuse Plan - in progress Naval Avionics Center Plan - Greyhound Bus Station Documentation White River Greenway Corridor Study - Comprehensive Parks, Recreation and Open Space Plan, Indpls/Marion County - 1992 Indianapolis Metropolitan Airport System Plan Update, June 1993 27 FACTOR 8: EXTERNAL CONNECTIVITY ISTEA Definition The need for connectivity of roads within the metropolitan area with roads outside the metropolitan area. FHWA - Region 5 Guidance Possible Short Term Actions: Inventory existing connectivity problems, like those related to the movement of freight. Ensure State DOT involvement in 3-C process. Possible Long Term Actions: Coordinate with Statewide planning process. Schedule projects to address needs. MPO Response The MPO will consider the need for external connectivity as part of network development. Deficiencies in connectivity will be identified and addressed in the modeling of system alternatives. The need to provide external connectivity will be reflected in the evaluation measures for system alternatives and project priorities. These activities are included in Technical Report No. 1, "Interim Study Design", Task 9 (Calibrate 1990 Model), Task 12 (Develop Alternative Modal Plans) and Task 13 (Evaluate Plans in Terms of Cost- Effectiveness and ISTEA Requirements). Status Report The 3-C planning process has traditionally considered connectivity inside and outside the transportation planning area. The travel in, out and through the metropolitan planning area is being quantified in the external origin-destination study now being conducted by the MPO. The results from this study will be used as part of model calibration and in the development of system alternatives. Coordination activities along the various jurisdictions within the MPO and particularly with INDOT's long range transportation planning efforts will continue to ensure that connectivity across the study area boundary is maintained. The coordination activity will largely be performed via the IRTC. The reports listed below document the planning efforts pertaining to Factor 8. External Station Study (in progress) Thoroughfares Plans for jurisdictions within the NTA. 28 FACTOR 9: MANAGEMENT SYSTEMS ISTEA Definition The transportation needs identified through use of the management systems required By section 303 of this title. FHWA - Region 5 Guidance Possible Short Term Actions: Adopt strategy for considering the output of the management systems in the 3-C process. Possible Long Term Actions: Reflect consideration of strategies identified by management systems in the LRP and in its financial plan. MPO Response The MPO will use the results of the Management Systems, when they are made available, in the areas of traffic modeling in Tasks 5 (Determine Methods for Travel Model Update) and 9 (Calibrate 1990 Model); inventories in Task 7 (Collect Roadway Data and Traffic Counts for Model Calibration); identification of deficiencies in Task 11 (Identify System Deficiencies); plan development in Tasks 12 (Develop Alternative Modal Plans), 13 (Evaluate PI= in Terms of Cost- Effectiveness and ISTEA Requirements) and 14 (Develop Future Multimodal PI=); and, development of the financial plan in Task 15 (Develop the Financial Plan) of the -Interim Study Design". It is not certain at this time if the results of the Management Systems will be available for use in the Long Range Transportation Plan update currently in progress. Status Report USC 23 section 303 titled "MANAGEMENT SYSTEMS" states miles for seven management systems for elements of the transportation system. These management systems are to be included as part of the management process specified by ISTEA. The seven management systems are: Pavement Management system (PMS) Bridge Management System (BMS) Highway Safety Management System (SMS) Traffic Congestion Management System (CMS) Public Transportation Facilities and Equipment Management System (PIMS) 29 Intermodal Facilities and Systems (IMS) Traffic Monitoring System for Highways (TMS/H) Section 500.105 titled "Policy" states: The primary purpose of the management systems is to provide additional information needed to make effective decisions on the use of limited resources. Each state shall develop, establish, and implement, on a statewide basis each of the management and monitoring systems. MPO's and agencies shall be given appropriate opportunities for involvement in the development, establishment, and implementation of the management systems. The outputs of each management system shall be integrated into the metropolitan planning process and the statewide transportation planning process and shall be considered m the development of metropolitan and statewide transportation plans and improvement programs and in making project selection. States are encouraged to use BPMS to the extent possible. The lead responsibility for responding to the section 303 requirements (except the Congestion Management System) rests with the state, however, section 500.107 titled "Coordination and Evaluation of Systems," specifies that "within all UTO areas, CMS, PTMS, and IMS shall be part of the metropolitan transportation planning process." The MPO has the lead responsibility for the Congestion Management System in cooperation with the State. Activities pertaining to Factor 9 are highlighted below: Pavement Management System (PMS) Phase I of a Pavement Management Program for the City of Indianapolis has been completed and encompassed Perry Township. The Phase H program, which covers the remainder of Marion County, is currently under contract and should be completed by December 31, 1993 (see Appendix H). As the lead agency for the development, establishment and implementation of the management and monitoring systems, INDOT is cooperating with IDOT in the preparation of the Pavement Management System. In addition, the INDOT PMS for the State of Indiana has been completed for the Interstate Highway system. INDOT maintains a state roadway inventory on its main frame computer and could become a storehouse for local jurisdictions' PMS inventories. A PMS for the year 2020 WA will be developed as part of the long range transportation plan. The first step toward preparing the WA PMS win be to combine the PMS for the City of Indianapolis with the PMS prepared by INDOT for the WA area and adopting a unified graphic display system for the new MPA. Supplemental work may be required to add those roadways 30 included in the City PMS which are not included in the INDOT PMS but should be a part of the PMS for the 2020 MPA. Bridge Management System An inventory of bridge conditions has been prepared by county within each county of the state. INDOT is using the previously collected data to prepare a BMS per the requirements of ISTEA. The output of the INDOT developed system will be used by the MPO for the year 2020 MPA and in the project selection process. Highway Management System (SMS) INDOT is the lead agency for the preparation of the SMS. A component of the system, accident occurrence data, is included in the TSM and is used in the project selection process. Also maintained by INDOT are a traffic accident records system and a highway grade crossing inventory. Congestion Management System (CMS) The "Traffic Congestion System" is the same as the "Congestion Management System' referred under the discussion of ISTEA Factor 3 of this report. Public Transportation Facilities and Equipment Management System (PTMS) INDOT is the lead agency for the preparation of the PTMS and as required by ISTEA is coordinating the effort with the MTO and the @ area recipients of FTA transit assistance programs. Development of a PTMS operating manual development is underway as part of procedures for implementing the IMS and programming projects will need to be developed as part of the long range transportation planning effort for the year 2020 MPA. INDOT in cooperation with the MPO will lead this effort. Intermodal Facilities and Systems INDOT is the lead agency for the preparation of the IMS and as required by ISTEA in coordinating the effort with the MTO and the MPO area recipients of FTA transit assistance programs. INDOT has recently begun development of the IMS. The IMS implementation and updating effort will need to be closely coordinated between INDOT, the @, and transit system federal aid recipients for the 2020 NTA as required by ISTEA. Procedures for implementing the IMS and programming IMS projects will need to be developed as part of the long range transportation planning effort for the year 2020 MPA. INDOT in cooperation with the MPO will lead this effort. 31 Traffic Monitoring System for Highways (TMS/H) INDOT is the lead agency for the preparation of the TMS/H and as required by ISTEA is coordinating the effort with the UPO programs. INDOT follows the traffic inventory guidelines which were recently approved by FEHWA. The TMS/H implementation and updating effort will need to be closely coordinated between INDOT and the MPO as required by ISTEA. The reports listed below document the planning efforts pertaining to Factor 9. Indianapolis Pavement Management System Scope of Work - Pavement Management Program - Phase H 1993-1995 Indianapolis Capital Improvement Program INDOT - Pavement Management Program has developed a condition survey manual and software to implement the state portions of the PMS. RMT Bridge Inventory Report (annual update) Indiana Transportation Plan INSTIP. DMT TSM INDOT SMS projects are part of the INSIP report 32 FACTOR 10: RIGHT-OF-WAY PRESERVATION ISTEA Definition Preservation of rights-of-way for construction of future transportation projects, including identification of unused rights-of- way which may be needed for future transportation corridors and identification of those corridors for which action is most needed to prevent destruction or loss. FHWA - Region 5 -Guidance Possible Short Term Actions: Adopt policy and procedures for right of way (R/W) preservation; identify potential corridors; prepare information for report to Congress due 12/18/93. Possible Long Term Actions: Adopt process for considering corridor preservation as part of land use plan updates. Prioritize and schedule projects in LRP. MPO Response Right-of-way preservation and advance right-of-way acquisition along roadway, railroad and utility corridors will be addressed as part of the update of the Long Range Transportation Plan. The need to preserve right-of-way relates to Task 12 (Develop Alternative Modal Plans), Task 14 (Develop Future Multimodal Plan) and Task 15 (Develop the Financial Plan) of the "Interim Study Design". The study design will be modified to include more specific references to the preservation of right of way. Status Report The jurisdictions within the MPO attempt to preserve rights-of-way for the purpose of implementing future thoroughfare, improvements. The preservation of right-of-way occurs as part of the development process. Generally, property owners selling permits to develop land are asked to dedicate a prescribed amount of right-of-way before a permit is issued. Right-of-way is preserved in advance of development in order to implement roadway projects more efficiently and to avoid the eventual disruption to property owners. Right-of-way standards were developed as part of the first long range transportation plan prepared by the MTO in the mid-1960's and were most recently updated in 1990. However, right-of-way preservation and the use of the standards has been left up to the individual jurisdictions. For example, in Indianapolis the amount of right-of- way to be preserved is 33 prescribed in the Official Thoroughfare Plan for Marion County which is adopted as part of Comprehensive Master Plan for Marion County. In other counties, R/W preservation based on the thoroughfare plan is strictly voluntary. There are no policies for advance right-of-way acquisition. The issue of right-of-way preservation and advance right-of-way acquisition will be incorporated in the update of the long range transportation plan. Efforts should be advanced that will ensure regional consistency in right-of-way preservation in so much as it relates to transportation facilities planing regardless of political or civil boundaries. This should result in a cooperative effort on a regional basis for the consistent preservation of right-of-way and corridors in association with and as identified in the LRP. Further actions should also address the identification of railroad and utility corridors that have potential importance as components of regional land use and transportation plans and that should be monitored for future acquisition. The reports listed below document planning efforts pertaining to Factor 10. Official Thoroughfare Plan for Marion County, Indiana, 1991 Recommendations for Revisions to the Right-of-Way Standards, 1990 Indianapolis Regional Transportation and Development Study (IRTADS), 1968 34 FACTOR 11: MOVEMENT OF FREIGHT ISTEA Definition Methods to enhance the efficient movement of freight. FHWA - Region 5 Guidance Possible Short Term Actions: Assess access to freight terminals; involve freight entities in 3-C process. Possible Long Term Actions: Establish freight advisory council, or other mechanism identified through the lNlS for private sector involvement in 3-C process. MPO Response Freight movement will be addressed in the Long Range Transportation Plan update in Task 12 (Develop Alternative Modal Plans) and Task 14 (Develop Future Multimodal Plans). Input from the freight and trucking industry will be sought through the Community Involvement Program (Task 2). The "Interim Study Design" will be revised to include specific references to freight movement thus ensuring that it is addressed in the plan update. Status Report No comprehensive activities specific to the movement of freight are currently undertaken by the NPO. However, the Indiana Department of Transportation (INDOT) Rail Division, has in the past made updates on a semi-annual basis to the Indiana Rail Plan. The Rail Division is currently in the process of updating the 1987 Rail Plan. The INDOT Planning Division is currently working with the Indiana University Transportation Research Center on the development of a multi-phase Commodity Flow Study that will ultimately provide corridor level commodity movement and mode split information on a statewide basis. This study will be further supplemented in later phases by information from a transportation census recently completed. There have also been studies and plans prepared for specific improvements in the movement of freight. In particular, the Indianapolis International Airport has developed and implemented plans for increased and more efficient movement of air cargo. 35 The reports listed below document the planning efforts pertaining to Factor II. Indianapolis Urban Goods Movement Study - December 1980 Indiana Rail Plan - last updated 1987, update in progress Indianapolis International Airport Master Plan - Feb. 1991 Indiana Commodity Flow Study - In progress, phase I complete 36 FACTOR 12: LIFE CYCLE COSTS ISTEA Definition The use of life-cycle costs in the design and engineering of bridges, tunnels, or pavement. FHWA - Region 5 Guidance Possible Short Term Actions. Adopt policy for consideration of life-cycle costs (i.e. operations in addition to capital) in the evaluation of needs and projects. Possible Long Term Actions: Include in the LRP's Financial Plan operating and maintenance costs of listed bridge, tunnel and pavement projects. MPO Response Development of a Financial Plan (Task 15 of the Interim Study Design) specifies the use of life-cycle costs. This methodology will ensure that alternative plans are evaluated on an equal economic basis,and that the selected Long Range Transportation Plan is cost feasible. Status Report The principles of engineering economy require all costs to be considered when evaluating the relative costs of alternative actions. The use of life-cycle costs is another way of expressing this requirement. Life-cycle costs allow dissimilar alternatives, including transit alternatives, to be compared on an even basis. An approach to using life-cycle costs would be to calculate the equivalent uniform annual cost (EUAC) for the capital cost, add annual maintenance and operating costs, and add the annualized cost of periodic major reconstruction or rehabilitation needed to maintain the economic life of the facility. This approach requires assumptions to be made regarding the economic life of each capital item, and a discount rate (time value of money). The cost of major rehabilitation of roads and existing pavement has been neglected in the Indianapolis Metropolitan Planning Area when calculating the funds that are expected to be available for new roadways. Current planning documents prepared by the Indianapolis MPO do not use life-cycle costs. Only implementation costs are programmed. Likewise, INDOT documents, including INSTIP, and the Directory of Proposed Highway Projects, while including costs for items such as bridge replacement and pavement rehabilitation projects, do not include 37 life-cycle costs for new roadway projects and major improvements to roadways and bridges. Costs are listed only for implementation. The City of Indianapolis is currently developing a pavement management system which should be completed by December 31, 1993. When complete, the system will provide reliable data on the actual cost of maintaining, and reconstructing roadways for a large portion of the transportation study area. These data are expected to prove valuable for the calculation of life-cycle costs. Additional data will be provided by the statewide Pavement Management System and Bridge Management System upon their completion by INDOT. The Long Range Transportation Plan will use life-cycle costs. For each project and alternative proposed and analyzed, costs will be developed for: Engineering, right-of-way construction, and other implementation costs. Annual maintenance and operating costs. Costs of periodic major reconstruction or rehabilitation as required to ensure the project's economic life. The economic life of each element of the implementation cost will be identified. For example, the economic life of right-of-way may be 100 years, while the economic life of pavement may be less than 20 years (the pavement management system will help here). Using an assumption for the discount rate, the EUAC of each element will be calculated. Most current analyses assume a discount rate of seven percent. Annual operating maintenance costs will be calculated on the basis of current operating experience. For the Long Range Plan, periodic major reconstruction or rehabilitation is considered to be a major cost above and beyond the usual maintenance cost which is required before the end of an element's economic life. For example, if after ten years certain types of pavement needed rehabilitation according to data from the pavement management system, the cost would be annualized and added to the EUAC. On the other hand, if the assumed economic life is 20 years, and it is found that only ordinary maintenance is needed over the first 20 years, and then it is most economical to totally reconstruct the pavement, then the costs of major reconstruction would already be accounted for by using a 20 year life, a discount rate, and calculating the EUAC. This demonstrates the need for accurate local data on pavement life and rehabilitation. Use of life-cycle cost is closely related to the ISTEA requirement that the Long Range Plan be financially feasible. Only by using life- cycle costs can the true financial feasibility of the Long Range Plan be assessed. The reports listed below document the planning efforts pertaining to Factor 12. Pavement Management Program for Indianapolis, in progress 38 FACTOR 13: SOCIAL, ECONOMIC, ENERGY AND ENVIRONMENTAL CRITERIA ISTEA Definition The overall social, economic, energy, and environmental effects of transportation decisions. FHWA - Region 5 Guidance Possible Short Term Actions: Outline current methods for considering economic and energy efficiency effects during project development. Adopt adequate technical process for CAA compliance. Possible Long Term Actions: Effect early consideration of these effects during corridor studies for major investment projects. Show consistence with FHWA's EPS (4/90) and coordination with SIP. MPO Response The need to consider the overall social, economic, energy, and environmental effects of transportation decisions will be reflected in the evaluation of transportation alternatives and in determining project priorities. Input on these issues will be sought in Task 2 (Community Involvement) and Task 3 (Coordinate With Applicable Federal State and Local Agencies). This input will guide the development of the plan in Task 12 (Develop Alternative Modal Plans) and Task 14 (Develop Future Multimodal Plan). More specific consideration of social, economic, energy, and environmental issues will take place in Task 13 (Evaluate Plan in Terms of Cost Effectiveness and ISTEA requirement and in Task 16 (CAAA Conformity). Status Report ISTEA requires that transportation plans and programs shall consider "the overall social, economic, energy, and environmental effects of transportation decisions." The evaluation of these factors can then be merged with transportation related and other criteria to gain an overall system evaluation. Traditionally measures of social and economic characteristics have only served to quantify the magnitude and distribution of travel demands which the transportation system is to serve. The economic benefits and disbenefits of alternative transportation systems have typically been expressed as road user costs and benefits determined from the travel demand statistics and capital cost estimates. Now transportation system costs must further consider maintenance and operational expenses as a part of life cycle considerations. (See Factor 12). 39 Also in the past, little attention was given as to how the transportation system affects social and economic conditions and influences the locational decisions about where people live and where business locate. Now, the process calls for the analysis of the reverse relationships, a recognition that social and economic locational decisions, are partially the result of accessibility created by the transportation system. Energy consumption and mobile emissions have been traditionally estimated by travel simulation models to compare alternative networks. Now, the analysis must be carried further to demonstrate that transportation improvements do not degrade air quality. Furthermore, the process must consider the effect on the full range of environmental concerns. The most basic information about the social and economic characteristics of the region is contained in various documents and is available from the U.S. Bureau of Census. The Census data is readily available, has been summarized and published in several formats including published reports, computer tapes and disks. Social and economic values of the region are expressed through the Comprehensive Plans of the various jurisdictions. The economic value of the transportation system has only been measured in terms of benefits to road users. These benefits have been estimated as a part of the traffic simulation modeling process. Likewise, the modeling process provides gross estimates of fuel consumption and mobile source emission levels. Long range transportation planning will incorporate a structured evaluation process to enable social, economic, energy and environmental criteria to be considered. Appendix I contains some possible criteria for future discussion. The reports listed below document the planning efforts pertaining to Factor 13. The Comprehensive Plan for Marion County, 1991 The Comprehensive Plan for Carmel, Indiana, 199_ The Comprehensive Plan for Greenwood, Indiana, 1988 The Comprehensive Plan for Hamilton County The Comprehensive Plan for Johnson County The Comprehensive Plan for Hendricks County The Comprehensive Plan for Hancock County. 1990 Census Reports A - D, DMD, 1992 Add-on to the 1990 Nationwide Personal Transportation Survey, 1992 1990 Census Transportation Planning Package (Not yet Received) 40 FACTOR 14: ENHANCE TRANSIT SERVICES ISTEA Definition Methods to expand and enhance transit services and to increase the use of such services. FHWA - Region 5 Guidance Possible Short Term Actions: Adopt a truly multimodal (hwys. & transit) needs evaluation/funding allocation process. Show consideration of ISTEA flexibility provisions. Possible Long Term Actions: LRP to reflect CMS identified transit solutions. Adopt project development guidelines that accommodate the integration of transit and highway operations. MPO Response The Long Range Plan update will refine the transit elements for the travel model in Task 5 (Determine Methods for Travel Model Update), Task 6 (Develop Roadways and Transit Network) and Task 9 (Calibrate 1990 Model) Information on transit needs will be gathered in Task 2 (Community Involvement) and Task 3 (Coordination with Applicable Agencies). Those needs will be further identified in Task 11 (Identify System Deficiencies). Task 12 (Develop Alternative Modal Plans) and Task 14 (Develop Future Multimodal Plan) will develop transit portions of the plan. Status Report The MTO and Metro are cooperating on several projects which will enhance transit service in this area and will provide input into the update of the Long Range Transportation Plan. The MTO is the lead agency in contracting with a consulting firm to develop a strategic plan that will guide the development of a comprehensive public transportation system which is more effective and responsive to the needs of the community. The plan which is currently under way is to be completed by January, 1994. It will examine the role of Metro's fixed-route system, specialized transportation providers and other agencies/organizations that are involved in the provision of public transportation. The plan will also identify strategies for redefining services to meet the needs of the community and to better support the community's overall objectives. The plan will be flexible enough to meet changing trends and environments but specific enough to ensure that measurable results are achieved. 41 The MPO and Metro are also cooperating in the geocoding of origins and destinations of transit patrons as indicated by a June, 1993 Metro transit User Survey. As Metro gathers more direct market research data, the MPO and Metro will jointly evaluate this data. It will Also be available for the Long Range Transportation Plan update. The MPO and Metro have both been active in trying to coordinate the transportation services provided to the elderly and disabled. Much of this work has been done through the Indianapolis Area's Section 16 committee headed up by the MPO. Metro and the MPO most recently worked on a task force to develop recommendations to address issues related to Medicaid transportation. Based on the task force's recommendations, Metro is currently having discussions with the State of Indiana that may result in savings for the State and additional revenue for Metro if the Medicaid system uses Metro more extensively. If the reports listed below document the planning efforts pertaining to Factor 14. Comprehensive Service Analysis for EPITC/Metro - July 1990 Strategic Plan for Public Transportation - in progress 1991 Annual Report Indiana Public Transportation - INDOT Transportation System Management (TSM Process Report - Nov 1991 Washington Street Transit Mall Study - April 1992 An Analysis of Metro's 1993 Transit User Survey - in progress 1992 Indianapolis Public Transportation Corporation Annual Report 42 FACTOR 15: TRANSIT SECURITY ISTEA Definition Capital investments that would result in increased security in transit systems. FHWA - Region 5 Guidance Possible Short Term Actions Assess current transit security features of capital projects; identify needs. Possible Long Term Actions: LRP to reflect consideration of PTMS output. Adopt and implement policy for project development that ensures incorporation of the most cost effective transit security features. MPO Response Consideration of transit security will be coordinated with Metro staff under Task 3 (Coordination with Applicable Federal,State, and Local Agencies). Transit security will be considered in Task 12 (Development of Alternative Modal Plans), and Task 14 (Development of Future Multimodal Plan). Status Report There is not a current emphasis n providing for capital investments that would result in increased security in transit systems. The Comprehensive Service analysis report references inadequate conditions at park-and-ride lots including lack of lighting, telephones, shelters and other amenities. In addition, many of Metro's bus stops include nothing more than a sign on a pole and lack proper amenities such as shelters, lighting and seating. The reports listed below document the planning efforts pertaining to Factor 15. IPTC/Metro Comprehensive Service Analysis - 1990 Indianapolis Capital Improvement Program Indianapolis Regional Transportation Improvement Program (IRTIP) Transportation System Management Process Report - Nov 1991 IPTC/Metro Standards of Service Report - 1981 43 APPENDIX A STUDY REVIEW COMMITTEE INDIANAPOLIS LONG-RANGE TRANSPORTATION PLAN UPDATE STUDY REVIEW COMMITTEE STUDY STAFF AND CONSULTANTS (Rev. 9/3/93) STUDY REVIEW COMMITTEE Lou Ann Baker Office of the Mayor 200 East Washington Street, Suite 2560 Indianapolis, IN 46204 Robert Faris, Sr. Town of Speedway 1829 Cunningham Road Speedway, IN 46224 PHONE: 317-236-6322 Ed Ferguson, Planning Director City of Greenwood 2 North Madison Avenue Greenwood, IN 46142 PHONE: 317-881-8698 FAX- 317-887-5616 Mr. Gordon Gilmer, Councilman City of Indianapolis 8621 Green Braes Indianapolis, IN 46234 PHONE: 317-291-8445 Roger Johnson, Long Range Planning Director Town of Fishers 1 Municipal Drive Fishers, IN 46038 PHONE:317-577-3507 FAX: 317-577-3505 James Maslanka IPTC/METRO P.O. Box 2383 Indianapolis, IN 46206 PHONE:317-635-2100 FAX: 317-634-6585 Study Directory Page 2 (Rev. 9/3/93) Dan Orcutt, Executive Director Indianapolis Airport Authority 2500 South High School Road, Box 100 Indianapolis, IN 46241 PHONE:317-487-5001 FAX: 317-487-5034 Walt Reeder, III, Highway Engineer Hendricks County Highway Department P.O. Box 51 Danville, IN 46122 PHONE:317-745-9236 FAX: 317-745-9347 Gunnar Rorbakken, Chief of Transportation Planning Indiana Department of Transportation Indiana Government Center North, Room 901 100 North Senate Avenue Indianapolis, IN 46204 PHONE:317-232-2380 FAX: 317-232-1499 Mayor Thomas Schneider City of Lawrence 4455 McCoy Street Lawrence, IN 46226 PHONE: 317-545-6191 Tom Stevens, Director of Highways Hamilton County Highway Department 1717 East Pleasant Street Noblesville, IN 46060 PHONE:317-773-7770 FAX: 317-776-9814 Larry Tucker, P.E. Federal Highway Administration Indiana Division 575 North Pennsylvania Street Indianapolis, IN 46204 PHONE:317-226-7492 317-226-7341 Study Directory Page 3 (Rev. 9/3/93) Mayor Nannett Tunget City of Southport 6901 Derbyshire Road Southport, IN 46227 PHONE: 317-881-7725 Tom Welch, Carmel City Engineer City of Carmel I Civic Square Carmel, IN 46032 PHONE:317-571-2441 FAX: 317-571-2426 Clay Whitmire Department of Transportation 2360 City-County Building Indianapolis, IN 46204 PHONE:317-327-4700 FAX: 317-327-4577 Mayor J. Warner Wiley City of Beech Grove 806 Main Street Beech Grove, IN 46107 317-788-4979 DMD - PLANNING DIVISION STAFF Lori Miser, Senior Planner Department of Metropolitan Development Planning Division 129 E. Market Street, Suite 500 Indianapolis, IN 46204 PHONE:317-327-5136 FAX: 317-327-5103 Study Directory Page 4 (Rev. 9/3/93) Michael Peoni, Senior Planner Department of Metropolitan Development Planning Division 129 E. Market Street, Suite 500 Indianapolis, IN 46204 PHONE:317-327-5133 FAX: 317-327-5103 Sweson Yang, Project Manager Department of Metropolitan Development Planning Division 129 E. Market Street, Suite 500 Indianapolis, IN 46204 PHONE:317-327-5183 FAX: 317-327-5103 CONSULTANT TEAM Vince Berardin Berardin-Lochmueller Associates Suite 606 Hulman Building Evansville, IN 47708 PHONE:812-426-1737 FAX: 812-426-7369 Joann Green Claire Bennett Associates 5435 North Emerson, Suite 300 Indianapolis, IN 46226 PHONE:317-541-0400 FAX: 317-541-0411 David C. Hoeh, Assistant Project Manager The Corradino Group 200 South Fifth Street, Suite 300 North Louisville, KY 40202 PHONE:502-587-7221 FAX: 502-587-2636 Study Directory Page 5 (Rev. 9/3/93) Kenneth D. Kaltenbach, P.E, Project Manager The Corradino Group 200 South Fifth Street, Suite 300 North Louisville, KY 40202 PHONE: 502-587-7221 FAX-502-587-2636 James Klausmeier Pflum Klausmeier & Gehrum 47 South Pennsylvania, 9th Floor Indianapolis, IN 46204-3622 PHONE:317-636-1552 FAX: 317-636-1345 Fred Sanborn, Senior Vice President Resource Planning Associates, Inc. Transportation Systems Group 6043 Gibson Street East Lansing, NH 48823 PHONE: 517-337-9436 FAX- 517-332-2547 APPENDIX B STUDY TASKS 1.1 PROJECT OVERVIEW The Interim Work Program addresses all of the ISTEA issues, provides an interim approach for meeting the October 1993 ISTEA deadlines, and a long-term approach for addressing in-depth all ISTEA requirements. Eight areas of emphasis for this study have been identified for the October 1, 1993 ISTEA deadline: Define new the Metro Planning Area Review and refinement of the existing traffic model. Clean Air Act Conformity and Congestion Management. Integration of transit planning and transit agency involvement into the Long Range Plan as required by ISTEA. Development of Financial and Capital Plans for Transportation. Defining a process for broader citizens participation. Beginning a process of Transportation Demand Management. Providing new socioeconomic data projections from the 1990 Census The Interim Work Program that follows describes all activities that should be accomplished for the project. The Products section for each task describes what part of the task will be complete for the October ISTEA deadline, and what parts will be finished either by the end of the calendar year or at a later time beyond the advertised project time and budget. The Consultant Team will develop a Technical Memorandum or Report and a briefing for each task. The City and the Consultant Team both acknowledge that the Interim Work Program described here are based on FHWA Interim Guidance on ISTEA dated April 6, 1993, and Metropolitan Planning Notice of Proposed Rule Making, as published in the Federal Register on March 2, 1993; and that changes in Guidance and Rules issued by the U.S. Department of Transportation (USDOT) might require changes in the scope, schedule, and budget of this project. Should such changes occur, procedures for changes in work described elsewhere in this agreement will be followed to accommodate the requirements of USDOT (see Appendixes 1, 2, 3). 1.2 TASK 1 - PURPOSE STATEMENT The purpose of Task 1 is to provide a study management structure for the effective and timely completion of the work. Accordingly, the proposed scope of services, methodology and schedule have been refined to constitute the Interim Study Design (i.e., detailed work program) for the effort. The Interim Study Design is presented in two phases of activity targeted for completion prior to October 1, 1993 and in some aspects prior to December 30, 1993. The Interim Study Design is offered for review, comment, and revision by the Study Review Committee prior to final draft and adoption. 2. PHASE I INTRODUCTION Based on the Consultant Team's recent ISTEA experiences and current responsibilities in other states to develop a restructured STIP process and link the TIP prioritized project selection process to the State Long Range Plan, the Consultant Team is especially sensitive to Phase One and Phase Two activities. These tasks will produce recommended changes to the existing modeling and programming processes in all states and UTOS. For the most part, the changes will stem from the implications inherent in the fifteen planning factors which presently are not linked to the priority list of financially feasible projects (three year period in one year increments) to be produced in the Transportation Improvement Program. This process, although introduced in the Interim Guidance on ISTEA Metropolitan Planning Requirements, is an early warning signal for adjusting the MTO suballocation process. It will require a clear linkage between the transportation objectives and planning criteria contained in the Long Range Transportation Plan (LRTP), and a systematic project-ranking and priority system, which is the core ISTEA component in developing the ISTEA STIPs and TIPS. The four major components of a successful process developed in concurrence with the fifteen ISTEA planning factors will include: (1) the clear analysis and identification of transportation system and service 'needs," (2) identification of a financially feasible plan describing how the Long Range Transportation Plan can be implemented, (3) design of a restructured programming process consistent with the LRTP0 (ISTEA requirement), which enables the identification of prioritized projects (against the backdrop of ISTEA requirements), investment strategy analysis, and system and service balance and equity, and (4) the design of public, agency, and private involvement program, at the policy level to serve as a proactive review team to comment on the results of the ISTEA planning process, the technical linkages to the programming process, and the implications of the restructured process on the TIP and funding reallocations. An Interim Summary Report will be prepared at the end of Phase I activities. 2.1 TASK 1 - DETAILED STUDY DESIGN 2.1.1 Issues The Consultant Team will review the existing planning and programming processes against explicit and implicit ISTEA requirements. The results of this analysis will be employed to identify specific tasks and subtasks which need to be accomplished before October 1993, and between October 1993 and October 1994. Assessment of the impacts of the availability of the six plus management systems will be integrated within the analysis. The first of the issues relates to the Intermodal Surface Transportation Efficiency Act (ISTEA) and its relationship to the Clean Air Act Amendments of 1990 (CAA). Section 134 of ISTEA requires that the development of a transportation plan in a non-attainment area must be coordinated with the process of developing transportation control measures in the air quality-related State Implementation Plan (SEP). Because of this need for coordination with the SIP planning process, a date of October 1, 1993 was established for completion of the transportation plan update. 2.1.2 Approach The Consultant Team, will develop a work program for both interim and long term elements. The interim elements will describe the immediate steps needed: (1) to update the transportation plan; (2) to satisfy the 'qualitative analysis' requirement for addressing the ISTEA factors, and (3) for achieving an initial "conformity determination by October 1, 1993. As part the interim analysis, the Consultant Team will conduct a brief analysis of the MTO's staff needs, and will provide recommendations on staffing required to meet ISTEA requirements. The long term elements will identify and describe the recommended permanent methodologies for addressing the ISTEA issues and will recommend work activities to be undertaken in future unified work programs of the agency. This aspect will require research and will, therefore, be submitted at a later date in the project. While the long term work elements will generally address quantitative, technical considerations, some qualitative work elements that deserve more time than the October 1 deadline allows will also be identified and included. It is important to note that some of the permanent ISTEA requirements are beyond the resources of this contract. In addition to focusing on such technical factors as "life cycle costs in the design and engineering of bridges", the land use and "environmental effects of transportation decisions", and the definition of the Congestion Management System, the long term work elements of the study design will focus on three other issues. The issues may be summarized as follows: In-house objectives such as sub-area analysis and modeling integration with the City's geographic information system, updated annualized forecasting capabilities, integration of the transportation planning process into a continuing, comprehensive and cooperative system. DMD staff have noted the need to upgrade in-house technical capabilities. The first relates to sub-area analysis and the second to GIS integration. The long term study design will evaluate all the reasonable options available for accomplishing these objectives and propose the most appropriate course of action. Regarding the development of a travel demand model capable of integration with the City's GIS, various intermediate options will be considered such as data transfer to a PC-based GIS designed for transportation planning applications. With regard to updating forecasting capabilities, USDOT wrote, "In the future, it is expected that the forecast period and the plan update schedule will be established so as to maintain a 20 year forecast period at all times, and that the ISTEA requirements will be fully addressed in the next update." (Italics added.) This moving forecast period will require changes in the way NTOs have maintained data sets and in their in-house forecasting capabilities. The long term study design will address proposed changes in procedural protocols and the development of in-house expertise in order to achieve enhanced forecasting skills. ISTEA requires that in the future, transportation needs should be identified through the development of six management systems relating to such diverse subjects as pavement management, bridges, traffic congestion, safety, public transportation, and intermodal considerations. At the same time, the planning process is supposed to remain "continuing, comprehensive, and cooperative". While the ultimate responsibility for these management systems rests with the State, and further, recognizing the fact that some of these "systems" require engineering (as opposed to planning) expertise, the MPO will nonetheless need to play a vital role in order to ensure that the overall process is well coordinated and remains truly "cooperative". Consequently, the long term study design will propose the formal establishment of inter-agency relationships and protocols intended to ensure that the intent of ISTEA is accomplished and that rationality in the ongoing planning process is achieved. 2.1.3 Products The end products of this work task will include: the Interim Study Design with project management and scheduling tools will guide the transportation plan update process and achieve a conformity determination by October 1, 1993. an ongoing Long Term Study Design will be prepared to guide future unified work programs, toward: (1) implementing permanent measures for addressing all the requirements of ISTEA; (2) achieving agency objectives regarding improved modeling/GIS capabilities; (3) improving in-house forecasting capabilities, and; (4) integration of the transportation planning process to meet the intent of ISTEA. 2.2 TASK 2 - COMMUNITY INVOLVEMENT The Consultant Team will develop presentations to inform various levels of government, elected officials, private and public interest groups on the technical linkages between the ISTEA planning and programming process and anticipated management systems and models. These meetings will focus heavily on the long-term, sub-allocation implications of the restructured TIP process, the potentials to stratify various jurisdictional highway systems with respect to revenue responsibilities and the potential to alter the traditional jurisdictional roles for system investment and maintenance. 2.2.1 Issues Transportation Planning for the Indianapolis area in the past has had a technical focus. Travel simulation models have provided the rationale for the Thoroughfare Plan and its priorities. With few exceptions, there has been little community involvement in the Transportation Planning Process or in the establishment of the Thoroughfare Plan. By contrast, there has been a great amount of recent and meaningful Community Involvement on other, but related, public policy issues. For instance, the Indianapolis Chamber of Commerce completed a thorough study and report in 1991 which outlined the infrastructure needs of Indianapolis. Also, a broadly based group of Indianapolis citizens is preparing visions and strategies for the future. The group, under the auspices of the Greater Indianapolis Progress Committee, has conducted surveys and meetings to build consensus on a variety of policy issues. The work of the group is continuing. The Indianapolis DNM has recently updated several neighborhood and Township Plans and has enlisted the involvement of citizens. The Congress of Neighborhood Organizations has been established as a communication network among neighborhood leaders and groups. Elsewhere in the transportation planning area, community involvement efforts have been made in Greenwood, Plainfield, Fishers and Carmel. The new Transportation Planning process will seek to involve the community by building upon established procedures and networks. 2.2.2 Approach The Community Involvement Process is incorporated into the study schedule, and management system. The Citizen participation Procedure will rely on established community organizations and their ongoing efforts to involve the general public, neighborhood representatives, and special interest groups. Introduction Public involvement during the preparation of the Interim Transportation Plan Update will include periodic informational bulletins and two series of five public meetings. Informational Bulletins Information four-panel bulletins will be prepared for monthly release to media, community organizations, special interest groups, and governmental officials. The list of potential recipients will be developed by the Consulting Team in consultation with the Study Committee. The format and design of the bulletin will be developed by the Consulting Team for the approval of the Study Committee. The format and design of the bulletin will bear the identification of the Policy Committee and will be issued under the signature of its Chairman and Vice-Chairman. The scheduled bulletins will discuss and illustrate the following topics: June 18: purpose of transportation plan update and announcement of public meeting schedule and sites; July 16: background information about transportation issues and announcement of public meeting schedule and sites; August 13: transportation planning procedures and announcement of public meeting schedule and sites; September 10: interim transportation plan and announcement of public meeting schedule and sites. Each camera-ready original bulletin will be submitted to the Committee which will arrange for it be to printed in required quantities and mailed. Public Meetings Two series of five similar public meetings will be conducted at various locations in the urbanized area (central, north, south, east, west). Fully accessible locations will be selected by the Committee which will be responsible for all physical arrangements including room fees, audio-visual equipment, etc. Each meeting will be conducted to encourage public participation. Displays of maps, charts, statistics and other materials will be prepared by the Consulting Team and made available to participants. The first series of five similar meetings will be conducted during evening hours of the week beginning July 19th to provide information about the transportation planning process and to elicit comments about regional transportation issues. Each meeting will be hosted by a public official who will introduce the Consulting Team. The Consulting Team will make all presentations and conduct the meetings according to the following agenda: 1. Introduction of Participants 10 minutes 2. Discussion of Transportation Planning Process 30 minutes a. Regional Growth and Development Process b. Metropolitan Planning Organization and Area c. Regional Travel Patterns and Demands d. Regional Transportation Network and Relationship to Planning Process e. Transportation Funding f. ISTEA Requirements and Implications 3. Small Group Discussions 30 minutes a. Identify Most Critical Transportation Issues b. Suggest Ways to Resolve Critical Issues 4. Reconvene Large Group 30 minutes a. Reports of Small Groups b. Discussions and Interactions 5. Conclusions and Wrap Up 10 minutes The second series of five public meetings will be conducted during the evening hours of the week beginning September 20th to provide information about the Interim Transportation Plan and to elicit comments about it. Each meeting will be hosted by a public- official who will introduce the Consulting Team. The Consulting Team will make all presentations and conduct the meetings according to the following agenda: 1. Introduction of Participants 10 minutes 2. Presentation of Interim Plan 30 minutes a. Critical Issues b. Resolution of Critical Issues 1. Policies 2. Plan Components 3. Funding 4. Project Selection Criteria 5. Priorities 3. Small Group Discussions 30 minutes a. Evaluation and Comment Regarding 1. Policies 2. Plan Components 3. Funding 4. Project Selection Criteria 5. Priorities 4. Reconvene Large Group 30 minutes a. Reports of Small Groups b. Discussions and Interaction 5. Conclusions and Wrap Up 10 minutes 2.2.3 Products Concise presentations will be prepared for all meetings of the various committees. Technical Memoranda and Interim Summary Reports will be circulated in advance of each meeting. All Memoranda and Reports will include both graphic and tabular displays to convey information in a "user friendly" style. The proceedings of each meeting will be documented, summarized, and considered in the conduct of the work. 2.3 TASK 3 - COORDINATE WITH APPLICABLE FEDERAL STATE, AND LOCAL AGENCIES 2.3. Issues Both ISTEA (24 U.S.C 134) and CAA (42 U.S.C. 7401) require consultation with all potentially affected agencies and units of government in the development of a long range urban transportation plan. This coordination is intended to ensure that the social, economic and environmental concerns of these agencies are addressed in the plan in addition to transportation concerns. 2.3.2 Approach Three parallel agency consultation efforts will be undertaken in developing the long range transportation plan. At a minimum, these will include: (1) letter contact with all affected Federal and State agencies at the outset of the project requesting a written reply within a specified number of days; (2) continuous consultation with the Indiana Department of specified Environmental Management for all work tasks relating to SIP coordination and conformity determination, and; (3) ongoing consultation with representatives from the local units of government subsumed in the expanded study area. The rationale behind establishing letter contact with all potentially affected state and federal agencies is primarily to document the fact that these agencies have been given an opportunity to provide input into the planning process. It is recommended that the list used for "early coordination in the federal environmental review process (pursuant to EPA regulations) be used for this purpose. The difference between this and the environmental early coordination process is that the solicitation letter will not request input on an individual project, but rather will invite the agency to provide areas of concern (both geographic and issue-related) that they would like to see incorporated into the project evaluation process. The agency responses will become project evaluation criteria. Since the agency designated to update the State Implementation Plan is the Indiana Department of Environmental Management, close contact will be maintained throughout with this agency. Data requirements and methodological considerations pertaining to SIP coordination and the plan's air quality conformity determination will be developed in consultation with this agency. Additionally, local units of government will be contacted to ascertain input relative to project identification and preferences. The membership of the Study Review Committee will be inclusive and will provide an ongoing forum for project and issue related input. Finally, as the last year demonstrates, the planning and programming schedules for implementing ISTEA have slipped, at least for the near term. The principal areas of concern are: (1) the issuance of federal guidelines and the timing of them, (2) development of adaptation recommendations, and (3) the role of turn-key management system (models). The Consultant Team, through its contacts in the Washington transportation network, will continue to provide early insight and intelligence of federal directions for integration within the Indianapolis ISTEA program. Contact will also be maintained with the Indiana DOT with respect to their critical schedules, SLRIT and SIP development, and management system (model) implementation, such as the FHWA supplied Bridge Management System (PONTIS). 2.3.3 Products The products of this task will be the necessary agency coordination and a Technical Memorandum detailing the coordination process. All coordination activities described in this task will be accomplished during the 1993 calendar year as part of this contract. 2.4 TASK 4 - DETERMINE THE BOUNDARY OF THE NEW STUDY AREA 2.4.1 Issues This task will determine the extent of the urbanized area to be included within the Indianapolis Metropolitan Planning Area for the purposes of the Long Range Transportation Plan Update. The Metropolitan Planning Area will include all areas which are anticipated to be urbanized by the 2020 target year. The Planning Area will determine, among other things, the limits of the travel demand model and inventories and projections of transportation facilities and socioeconomic data. Decisions will incorporate both measurable factors such as anticipated housing and employment densities, as well as political factors such as definitions of governmental jurisdictions eligible and willing to participate in the planning process. 2.4.2 Approach The Consultant Team will use decision theoretic to gauge the probabilities of population changes over the next twenty years in areas surrounding the 1990 urbanized area. Important inputs to this analysis will be 1990 Census data, and the location of the stations for the external O-D survey being conducted by TCG. The entire decision process will be coordinated with DMD staff, and with local agencies to determine which areas should be included in the Metropolitan Planning Area. In addition, matrices of benefits and liabilities to both groups (the City of Indianapolis and the proposed new areas) will be systematically assessed. This analysis will require significant coordination with all governmental jurisdictions that may be included in the area. The process of defining the Planning Area will follow ISTEA requirements. 2.4.3 Products The primary product of this task will be the definition of the Metropolitan Planning Area. A Technical Memorandum documenting the decision process will be produced. This task will be accomplished before the October ISTEA deadline. 2.5 TASK 5 - DETERMINE METHODS FOR TRAVEL MODEL UPDATE 2.5.1 Issues The purpose of this task is to establish the procedures that will be used to update the travel demand model in later tasks. It is expected that this task will identify short-term and long-term update programs. Major issues that will be addressed in this task include the fundamental decision on whether to maintain the based model or to convert the model to TRANPLAN. In the short-term will be used to update the travel model. Other major issues would be short-term model and network improvements, the need for surveys, development of transit networks, development of a mode choice model and transit assignment techniques, and integration of the modeling system with IMAGIS or other GIS programs. 2.5.2 Approach The Consultant Team will work closely with the DMD staff to determine the best procedures to update the travel demand model to meet ISTEA requirements. SOFTWARE MINUTP model should be maintained at least for the short-term activities that need to be accomplished for the 1993 calendar year. A model conversion effort during this time period would not greatly improve the transportation planning effort, and could delay time- critical products. There could be some long-term benefits to converting to TRANPLAN as its used becomes more widespread throughout the State, and as the Indiana Department of Transportation develops support capabilities for TRANPLAN. Other factors could include the need to move the model to OS/2 or a RISC machine as the Metropolitan Planning Area increases in size. The Consultant Team will work with the DMD staff to weigh the advantages and costs of conversion, and will make a recommendation on whether and when to convert the model. TRANSIT MODELS Other modeling decisions could be either long-term or short-term. ISTEA has placed a greater emphasis on multimodal planning. Thus, long-term activities should expand the model to include a transit modeling capability, and a policy-sensitive auto occupancy model for evaluating high-occupancy vehicle lanes. Development of new mode choice model for Indianapolis would require a series of surveys to determine local elasticities and other model constants. To do this a three step process is advised. The first step would be to include transit planning as a manual process for the October 1, 1993 ISTEA deadline. During this time, transit planning data could be assembled, service areas could be delineated, and strategic planning for expansion of services could be developed. At the same time, coding could begin for the existing transit system. The next step could be to put into place a borrowed mode choice model. The third step would be to begin planning for a new mode choice survey and model development. This step could begin after October. The main consideration for whether a new model and survey are needed will be the need to seriously consider fixed guideway transit. The Consultant Team will work closely with the DMD staff to determine whether a new mode choice model and surveys should be pursued. HIGHWAY NETWORKS This effort will determine the extent of the highway network and data requirements. The major i