America Bikes' Analysis of Bicycle and Pedestrian Programs in MAP-21

7/31/2019 America Bikes' Analysis of Bicycle and Pedestrian Programs in MAP-21

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AmericaBikes'AnalysisofBicycleandPedestrianPrograms

SAFETEALUvs.MAP21

Congresspassedanewfederaltransportationlaw,MovingAheadforProgressinthe21st

Century(MAP21),inJuneof2012.

Whilethenewlawsignificantlycutsavailablefundingforbikingandwalkingprojects,this

legislationpresentsanopportunityforAmericanstoencouragestateandlocalgovernmentsto

fullyutilizeavailablefundstomakebikingandwalkingsaferandmoreconvenient.

ThisdocumentisAmericaBikescompleteanalysisofthebikingandwalkingportionsofMAP21.OriginallywrittenshortlyafterthelawsreleaseinJuneof2012,ithasbeenupdated

multipletimestoreflectnewinformation.Mostrecently,AmericaBikesupdatedthisanalysisto

incorporateinterimguidancefromtheFederalHighwayAdministrationoftheUSDepartmentof

Transportation.

FormoreinformationonMAP21includinganswerstofrequentlyaskedquestionsandways

togetinvolvedinyourcommunityvisit americabikes.org/map_21.

TableofContents

Programs .........................................................................................................................................2Analysis .......................................................................................................................................2

FundingandStateoptout ..............................................................................................................3Analysis .......................................................................................................................................4

EligibleUses:TransportationEnhancements..................................................................................6Analysis .......................................................................................................................................7

EligibleUses:SafeRoutestoSchool................................................................................................9Analysis .......................................................................................................................................9

EligibleUses:RecreationalTrailsProgram ....................................................................................10Analysis .....................................................................................................................................10

EligibleActivities:Other ................................................................................................................11

Analysis .....................................................................................................................................11ProgramMechanics:GrantProgram.............................................................................................12Analysis .....................................................................................................................................13Chart:DistributionofTransportationAlternativesfunds..........................................................14

MandatorySidepathClause ..........................................................................................................15Analysis .....................................................................................................................................15


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Programs

SAFETEALU 2012MAP21

3distinctprogramswiththeirownfundingandmechanicsfordistribution

TransportationEnhancements SafeRoutestoSchool RecreationalTrails

TransportationAlternativescombinesthefollowingprograms:

TransportationAlternatives*(formerlyTransportation

Enhancements)

SafeRoutestoSchool RecreationalTrails Someroaduses

Analysis

Bycombiningthethreemainprogramsthatfundedbikingandwalkingprojects,plannersand

localcommunitieslosethespecificmechanismsforfunding.Inordertotakefulladvantageof

theseprograms,applicantsandadvocatesmustlearnthenewsystemandnomenclature.

Becausethefundingmechanismwillbecompletelynew,itwilltakeUSDOTandStateDOTs

sometimetogetthisnewprogramupandrunning.

*Note:Thenewbillreferstoboththeoverallfundingprogramandthenewlyeligibleusesforthe

formerTEprogrambythesamenameTransportationAlternatives.Inthisdocument,werefer

totheoverallprogramastheTransportationAlternativesProgramandthesmallerproject

categoryasTransportationAlternativesprojects.Thisdistinctionisnotinthelawitself.


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FundingandStateoptout

Thenewbillrepresentsasignificantreductioninfundingforbikingandwalkingprojects.

SAFETEALU 2012MAP21

Infiscalyear2011,thecombinedfunding

forTransportationEnhancements,Safe

RoutestoSchool,andRecreationalTrails

was$1.2billionlessthan2%ofall

transportationfunding.

ThecombinedfundingforTransportation

AlternativesProgramforalluseswillbe

approximately$800millionperyear.**

Nationally,TransportationAlternativeswill

makeup$808.76millioninfiscalyear2013

and$819.90millioninfiscalyear2014.

EachstatesTAfundingisdeterminedby

dividingthenationaltotalsamongthe

statesbasedoneachstatesproportionate

shareoffiscalyear2009Transportation

Enhancementsfunding.

Stateoptout/transfer:

Statescouldtransferupto1015%of

TransportationEnhancementsfundsto

otherprograms.

SafeRoutestoSchoolfundingwasnon

transferable.

Stateoptout/transfer:

Statescantransferupto50%of

TransportationAlternativesProgram

fundingtootheruseswithout

explanation.Statesmayonlytransferthe

fundingthatwouldbemadeavailableto

localentitiesthroughastaterun

competitivegrantprogram.StatesmaynottransferTAfundsthataredistributed

throughsuballocationbypopulation.For

moreinformation,seeProgramMechanics:

GrantProgram.

USDOTsinterimguidancestipulatesthata

statemaytransferTAfundstotheNational

HighwayPerformanceProgram(NHPP),the

SurfaceTransportationProgram(STP),the

HighwaySafetyImprovementProgram

(HSIP),theCongestionMitigationandAirQualityprogram(CMAQ),and/orMetro

planningprogram.

Inastateofemergency,statescantransfer

100%ofTransportationAlternatives

Programfundingtorebuilddamaged

highwayinfrastructure.


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IfthestatereceivesreimbursementforStateofEmergencydamages

throughanadditionalappropriation,it

mustberepaidtotheTransportation

AlternativesProgram.

ThroughtheCoburnoptout,ifthe

unobligatedbalanceoftheTransportation

AlternativesProgramexceeds100%ofa

oneyearallocation,everythingoverthat

100%canbeusedforCMAQuses.

Federalshare:

UnderSAFETEALU,thefederalSafeRoutes

toSchoolprojectswasoneoftherare

transportationprogramsinwhich100%ofaprojectscostscouldbepaidbyfederal

funds,withoutalocalmatch.

ForTransportationEnhancementsand

RecreationalTrailsprojects,federalfunds

covered80%ofaprojectscostsandlocal

entitiespaid20%ofthecosts.

Federalshare:

DuetoitsconsolidationwithTransportation

Alternatives,SafeRoutestoSchoolprojects

willnowfallunderthesamematchrequirementsasmostothertransportation

projects80%federalfundingwitha20%

localmatch.

Projectsthatpreviouslyfellunder

TransportationEnhancementsand

RecreationalTrailsremainsubjecttothe

80%federaland20%localfunding

breakdown.

Analysis

Overall,theamountoffundinghasbeencutby33%.Ifallstatesfullyexercisetheiroptout,the

newbillwillrepresenta66%cutinfunding.**

Thestateoptoutprovisionisamajorblowtofundinglevels.Astatethatchoosestooptoutcan

usethisfundingforanyprogramwithnoadditionalrestrictions.EvenastateDOTthatcares

aboutbikingandwalkingmaybetemptedtohaveunrestrictedfundingforhighwayuses.

Keepingthisfundingforbikingandwalkingwillrequiresignificantadvocacyatthestatelevel.

Unfortunately,theUSDepartmentofTransportationsinterpretationofMAP21determined

thatSafeRoutestoSchoolprojectswillnotcontinuetobe100%federallyfunded.This

alterationisanespeciallyharshblowforlowincomecommunitiesinneedofsaferstreets

aroundschoolsthathavefewlocalfundstosupportneededprojects.

ThetransferabilityoffundsmakestheCoburnoptoutvirtuallymeaningless.

**Note:Inouroriginalanalysis,AmericaBikeshadfoundthatfundingforTransportation

Alternativeswouldcometo$702millionperyear,representinganoverallfundingcutof42%

anda70%cutifallstatesexercisetheoptout.Uponfurtherreview,AmericaBikesfoundthat


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availablefundingwillactuallybe$792or$808million,representinga33%cutoverallanda66%

cutifallstatesoptout.


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EligibleUses:TransportationEnhancements

TransportationEnhancementsprojectsarenowcalledTransportationAlternativesprojects.

SAFETEALU 2012MAP21

TransportationEnhancements

Dedicatedfunding:

10%ofSurfaceTransportationProgramfunds(1%oftotal

transportationfunding)

$878millionin2011

Eligibleactivities:

1. Bicycleandpedestrianfacilities2. Bicycleandpedestriansafetyand

educationactivities

3. Acquisitionofsceniceasementsandscenicorhistoricsites

4. Scenicorhistorichighwayprograms(includingtheprovisionoftourist

andwelcomecenterfacilities)

5. Landscapingandotherscenicbeautification

6. Historicpreservation7. Rehabilitationandoperationof

historictransportationbuildings,

structures,orfacilities(including

historicrailroadfacilitiesand

canals)

8. Preservationofabandonedrailwaycorridors(includingtheconversion

andusethereofforpedestrianor

bicycletrails)

9. Inventory,controlandremovalofoutdooradvertising10.Archaeologicalplanningandresearch

11.Environmentalmitigationtoaddresswaterpollutiondueto

highwayrunofforreducevehicle

causedwildlifemortalitywhile

maintaininghabitatconnectivity

TransportationAlternativesprojects

Dedicatedfunding:

Nodedicatedfunding.Theseprojectsareeligibleforfundingunderthe

largerTransportationAlternatives

Program.

Eligibleactivities:

1. Construction,planning,anddesignofonroadandoffroadtrail

facilitiesforpedestrians,bicyclists,

andothernonmotorizedformsof

transportation,includingsidewalks,

bicycleinfrastructure,pedestrian

andbicyclesignals,trafficcalming

techniques,lightingandother

safetyrelatedinfrastructure,and

transportationprojectstoachieve

compliancewiththeAmericanswithDisabilitiesActof1990.

2. Construction,planning,anddesignofinfrastructurerelatedprojects

andsystemsthatwillprovidesafe

routesfornondrivers,including

children,olderadults,and

individualswithdisabilitiesto

accessdailyneeds.

3. Conversionanduseofabandonedrailroadcorridorsfortrailsfor

pedestrians,bicyclists,orothernonmotorizedtransportationusers.

4. Constructionofturnouts,overlooks,andviewingareas.

5. Communityimprovementactivities,including:

inventory,control,orremovalofoutdooradvertising;


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12.Transportationmuseums historicpreservationandrehabilitationofhistoric

transportationfacilities;

vegetationmanagementpracticesintransportation

rightsofwaytoimprove

roadwaysafety,preventagainst

invasivespecies,andprovide

erosioncontrol;and

archaeologicalactivitiesrelatingtoimpactsfromimplementation

ofatransportationproject

eligibleundertitle23.

6. Anyenvironmentalmitigationactivity,includingpollution

preventionandpollution

abatementactivitiesandmitigation

toaddressstormwater

management,control,and

waterpollutionpreventionor

abatementrelatedtohighway

constructionorduetohighway

runoff,includingactivities

describedinsections133(b)(11),

328(a),and329oftitle23;or

reducevehiclecausedwildlifemortalityortorestoreand

maintainconnectivityamongterrestrialoraquatichabitats.

Analysis

Inthenewprogram,thechangestothesafetyandeducationactivitiesremoveeligibilityfor

educationandsafetyactivities.However,noninfrastructureprojectstoencouragesafewalking

andbicyclingtoschoolforkindergartenthrougheighthgradearestilleligibleasSafeRoutesto

Schoolprojects.

TheeligibilityforconstructionofturnoutsistomakeupforthelossoftheScenicByways

program,andsomeuseswerecoveredundertheoriginalprogram.

Inthenewlaw,eligibilitiesregardingscenicorhistorichighwayprograms,landscapingand

beautification,historicpreservation,rehabilitationoftransportationbuildings,andpreservation

ofhistoricrailwaycorridorsarereworded.TransportationAlternativesfundscannowonlybe

usedforarchaeologicalactivitiesiftheprojectsaretransportationrelated.


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Sceniceasementsandmuseumsweredeletedaseligibilities.Rehabilitationofhistoricbuildings

isnowcombinedwithhistoricpreservation.

Environmentalmitigationeligibility#6inthenewprogramwasexpandedfromthespecific

usesincurrentlawtoincludeANYenvironmentalmitigation,includingNEPAcompliance.

AddingANYenvironmentalmitigationallowsfundingfromtheTransportationAlternatives

Programtobedirectedtowardsfederalenvironmentalrequirementspreviouslynotallowable

underTransportationEnhancements.Becauseofthelocalcontrolaspectsofthebill,local

governmentsarelesslikelytousethisfundingforNEPAcompliance.


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EligibleUses:SafeRoutestoSchool

SafeRoutestoSchooliseliminatedasastandaloneprogram,buttheprogramlanguageisstill

inthebill.

SAFETEALU 2012MAP21

SafeRoutestoSchool

Dedicatedfunding:

$182millionin2011

Features:

Standaloneprogramincludingseparateandspecificfunding

processesforstakeholders

Statesmustspend7090%ofprogramfundingforinfrastructureand1030%

fornoninfrastructure

FundedafulltimestateSafeRoutestoSchoolCoordinator

SafeRoutestoSchool

Dedicatedfunding:

Nodedicatedfunding.

Eligibleprojects:

1. Infrastructurerelatedprojectsplanning,design,andconstruction

ofinfrastructurerelatedprojectson

anypublicroadoranybicycleor

pedestrianpathwayortrailinthe

vicinityofschoolsthatwill

substantiallyimprovetheabilityof

studentstowalkandbicycleto

school.

2. Noninfrastructurerelatedactivitiestoencouragewalkingandbicycling

toschool

3. SafeRoutestoSchoolcoordinator.

Analysis

WebelievethatastatecanchoosetorunastateSafeRoutestoSchoolprogramasis,butthe

fundingwouldneedtocomefromtheiroveralltransportationdollars.Becauseitreferences

currentSafeRoutestoSchoollaw,theabilitytofundbothinfrastructureandnoninfrastructure

isretained.ThestateSafeRoutestoSchoolCoordinatorpositioniseligible,butnotrequired.


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EligibleUses:RecreationalTrailsProgram

SAFETEALU 2012MAP21

RecreationalTrails

Dedicatedfunding:

Dedicatedfundingbasedonrecreationalfueltax

Roughly$85millionperyear

Features:

Standaloneprogramwith20%localfundingmatch

Fundsobligatedforspecifiedtrailuses30%motorizedtrails,30%non

motorized,40%multiusetrails

AdministeredthroughDOTandstateDNRs

RecreationalTrails

DedicatedFunding:

Levelfunding

Features:

GovernorscanoptouteachyeariftheycontacttheSecretaryoftheUS

DOT30dayspriortoapportionments

TheprogramiseligibleundertheTransportationAlternativesProgram

ProjectsarealsoeligibleundertheSurfaceTransportationProgram

Analysis

Ifagovernordoesnotoptout,thisprogramwillcontinuetofunctionasitdoesincurrentlaw.It

willbeimportantforadvocatestoaskgovernorstokeeptheprogram.

Governorshavetheoptiontooptout eachyear.


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EligibleActivities:Other

SAFETEALU 2012MAP21

Othereligibleactivities

N/A

Othereligibleactivities

Planning,designing,orconstructing

boulevardsandotherroadwayslargelyin

therightofwayofformerInterstate

Systemroutesorotherdividedhighways.

Analysis

ThenewtypesofroadprojectsthatareeligibleundertheTransportationAlternativesProgram

couldconsumeanentirestate'sbudgetforoneormoreyears.

Thelocalcontrolaspectsofthistransportationbillmakeitlesslikelythataprojectofthislarge

scalecouldcompeteforthelimitedavailablefunds.


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ProgramMechanics:GrantProgram

ThisisthepartoftheprogramamendedbytheCardinCochranagreement.

SAFETEALU 2012MAP21

GrantProgram

Eachprogramhaditsownmethodfor

distributionoffunds.

ForTransportationEnhancements,most

statescouldsetupthegrantprogram.

ForSafeRoutestoSchool,moststatesheld

statewidecompetitions,butafewused

regionaldistributionorstatemanaged

implementation.

GrantProgram

Allfundsmustgothroughagrantprogram.

Thebilllimitswhichentitiesareeligibleto

apply.

50%ofFundingbyPopulation

DOTsmustdistributefundsaccordingtothe

shareofpopulationwithinthestate:

Forareaswithapopulationover200,000,fundswillbesuballocated

toMPOs.TheMPOsmustthenruna

grantcompetitionwithinitsarea.

Forareaswithapopulationbetween5,000and200,000,thestatewill

distributethroughacompetitivegrant

program.

Forareaswithapopulationunder5,000,thestatewilldistributethrough

acompetitivegrantprogram.

Noneofthesefundsmaybetransferredby

theDOT.

50%ofFundingbyGrantProgram

TheDOTsarerequiredtorunagrant

programtodistributetheother50%.Only

eligibleentitiesmayapply.StateDOTsare

noteligible.

StateDOTsmaytransferallofthispotto

otherhighwayuses.Iftheydo,therewillbe

nograntprogram.

EligibleEntities

N/A

EligibleEntities

1. Localgovernments2. Regionaltransportationauthorities


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3. Transitagencies4. Naturalresourceorpublicland

agencies

5. Schooldistricts,localeducationagencies,orschools

6. Tribalgovernments7. Anyotherlocalorregional

governmentalentitywith

responsibilityfororoversightof

transportationorrecreationaltrails

(otherthanametropolitanplanning

organizationorastateagency)that

thestatedeterminestobeeligible,

consistentwiththegoalsofthis

subsection.

Analysis

WhilethefinalbillretainsthehalfofCardinCochranthatsuballocateshalfoffundstoMPOs

andlocalareas,itallowsstatestooptoutofthehalfofTAfundsthataremadeavailabletolocal

entitiesthroughastateruncompetitivegrantprogram.

Byrequiringacompetitivegrantprogramandlimitingtheentitiesallowedtoapplyforthat

funding,thisprovisioniswrittentolimittheamountoffundsgoingtolargescalestatepriorities

likeroadsandNEPAcompliance.

Suballocating50%bypopulationensuresthatlocalcommunitiesofallsizeswillgetashareofTA

funding.

TheMPOcompetitionensuresthatentitieswithinanMPOareacanapplyforashareofMPO

funding,andensuresthestateDOTisnotthesoledecisionmakeronfundingpriorities.

The50%offundingdistributedbyastaterungrantcompetitionisatsignificantriskgiventhe

fulltransferabilityofitsfunds.Advocateswillneedtoworktoensurethatstatesretainthese

funds.

Eligibleentitiesinthenewbillweredefinedtoensurethatcurrentusersofthethreebikingand

walkingprogramscouldcontinuetobenefit.Stateagenciesarenoteligibletoapplyfor

TransportationAlternativesProgramfunding.

Thefollowingchartillustrateshowbikingandwalkingfundswillbedistributedunderthenew

law.


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Chart:DistributionofTransportationAlternativesfunds


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MandatorySidepathClause

SAFETEALU 2012MAP21

MandatorySidepathLaw

None

MandatorySidepathLaw

Bicyclistsareprohibitedonfederallyowned

roadsthathaveaspeedlimitof30miles

perhourorgreaterifthereisanadjacent

pavedpathforusebybicycleswithin100

yardsoftheroad,unlesstheSecretaryof

therelevantfederallandmanagement

agencydeterminesthatthebicyclelevelof

serviceonthatroadwayisratedBor

higher.

Analysis

Mandatorysidepathlawswereoncecommoninstatevehiclecodes.Theysaidthatwhenaroad

hasaseparatebikepathorbiketrail,bicyclistsmustusethepathandnottheroad.

Bymovingtobanbicyclistsoncertainnonhighwayroads,thisclausecouldsetadangerous

precedentforfederalbikepolicy.

ThisprovisionwasfirstincludedintheSenatetransportationbillwithouttheadditionofthe

BicycleLevelofServiceclause.Theadditionofthisclausenowmeansthatstatescanhavesome

outtoenforcingthelawandthatadvocateshaveanopportunitytodemonstratethatthe

restrictionshouldnotapplytotheirroads.

America Bikes' Analysis of Bicycle and Pedestrian Programs in MAP-21

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