PEL 101: The Tools for Adopting and Implementing a PEL Approach

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Slide 1:
Training Objectives

Facilitate higher quality integrated transportation and environmental decisions by providing information on the tools and methods for:

• Considering environmental, community, and economic goals during the transportation planning process, and
• Carrying planning decisions and data into the project development and environmental review process.

Slide 2
Agenda

Part 1: Overview of Planning and Environment Linkages

Part 2: Integrated Planning

• Question & Answer Session

Part 3: Linking Planning and NEPA

• Question & Answer Session

Slide 3
Part 1: An Introduction to Planning and Environmental Linkage (PEL)

Slide 4
What is PEL?

• An APPROACH to transportation decision-making
• A PROGRAM promoting tools and resources
• Supports FHWA/FTA Planning and NEPA Regulations

Slide 5
Elements of PEL

This slide shows a graphic of the interplay of Transportation and Resource agencies in both system-level planning and project-level decision.

Slide 6
Elements of PEL

This slide shows a graphic of how Linking Planning and NEPA and Integrated Planning weave throughout the transportation decision-making process, beginning with planning and continuing through construction, maintenance and operations.

Slide 7
Benefits of PEL

• Address complex environmental challenges early and avoid environmentally sensitive natural resources
• Design projects that meet mobility, environmental and community needs
• Minimize potential duplication of efforts and data within the planning and NEPA processes

Slide 8
Where we are based on feedback

From Transportation Agencies

• Need more guidance
• Lack of examples
• Mitigation?
• Flexibility is good
• Not another planning requirement
• Need training

From Resource Agencies

• Great opportunity
• Don't have the resources
• Early input may affect ability to make decisions later
• Need training
• How to be useful, provide valuable input

Slide 9
Where we are based on the GAO

• In progress, too soon to tell
• Several existing obstacles
  • Limited funding and staff at resource agencies
  • Limited incentives to contribute
  • Unfamiliarity with the other's processes
• Opportunities recognized
  • Improved project management
  • Weed out critical issues early
  • Agencies informed and involved early

Slide 10
Part 2
Integrated Planning: A Systems Perspective

Slide 11
Integrated Planning

This slide shows a graphic depicting an integrated planning approach, where multiple types of resources, including the land use system, transportation system, water resources system and other natural and cultural resource systems are integrated and planned for collaboratively.

Slide 12
Integrated Planning Requires a New Way of Doing Business

Slide 13
Regulatory Requirements

23 U.S.C. Parts 134 and 135 Require:

• Resource agency consultation
• Potential Environmental Mitigation

Reflected in 2007 Planning Regulations — 23 C.F.R. § 450

Slide 14
Consultation Requirements

Requires comparison of transportation plans with available

• State conservation plans or maps
• Inventories of natural or historic resources
• Consultation with Agency Experts

Slide 15
Environmental Mitigation

Environmental mitigation activities are "intended to be regional in scope, and may not necessarily address potential project-level impacts." — 23 CFR 450.104

Slide 16
Environmental Mitigation Examples

Example:
South Carolina DOT — Carolina Bays Ecosystem Initiative

Example:
Mississippi DOT — Deaton Ecological Preserve

Slide 17
Tools and Methods for Integrating Transportation Planning and Environmental Plans and Data

Slide 18
Education and Training

Provides agencies with a common understanding of one another's roles and responsibilities.

Example:
FHWA's Linking Conservation & Transportation Planning Workshops

Slide 19
Formalizing Interagency Coordination

Interagency Agreements can foster the early and continuous involvement of environmental, regulatory, and resource agencies in the planning process.
Sample Actions:

• Establish interagency work groups or committees
• Develop MOUs/MOAs

Slide 20
Interagency Coordination — An Example

Example:
Transportation Resource Agency Consultation and Environmental Streamlining (TRACES)

Example:
Colorado's Planning and Environmental Linkages Partnering Agreement

Slide 21
Fund Resource Agency Positions

Use of Federal-aid and/or State funds to provide dedicated staffing at resource agencies

Slide 22
Funded Positions — An Example

California DOT Funded Position for Planning

• One year pilot project to fund a USEPA liaison position dedicated to transportation planning
• The early involvement of USEPA can facilitate the comprehensive integration of environmental factors into transportation planning.

Slide 23
Data and Information Sharing

• Basis for early consideration of the effects of alternative transportation solutions on environmental, community, and cultural resources
• Resource agency outputs relevant to transportation planning include:
  • State Wildlife Action Plans
  • Watershed Management Plans
  • Historic Resource Inventories

Slide 24
Data and Information Sharing — An Example

North Carolina's Conservation Planning Tool

Slide 25
Analysis and Decision Support Tools

Software or web-based systems designed to improve effectiveness of decision-making
Examples:

• Leverage existing software tools, i.e. GIS
• CommunityViz
• NatureServe Vista
• CorPlan
• MetroQuest
• PLACE3S
• Paint the Town

** FHWA does not specifically endorse any of the tools listed

Slide 26
Analysis and Decision Support Tools — An Example

Pikes Peak and Pueblo Councils of Government
Outcome: Analysis incorporated as appendix to Long Range Transportation Plan

Slide 27
Joint Scenario Planning

• Framework for developing a shared vision for the future
• Tool to analyze various forces that affect growth:
  • Transportation
  • Land use
  • The economy

Slide 28
Joint Scenario Planning — An Example

Sacramento Blueprint

Slide 29
Questions?

Slide 30
Part 3: Linking Planning and NEPA

Slide 31
Unifying Planning and NEPA Decision-Making

Traditional Environmental Analysis in the Project Planning/Project Development Stage

• Transportation planning often does not incorporate environmental factors
• Environmental agencies have little understanding of or influence on transportation plans and programs
• Planning decisions are often revisited under NEPA
• Environmental reviews often are conducted without knowledge of prior planning studies and activities
• Public and elected officials become impatient, confused, frustrated over apparent revisiting of previous decisions

Slide 32 Regulatory Authority and Guidance

• 23 CFR 450.212 and 450.318 — Transportation planning studies and project development
• 23 CFR 450 Appendix A
• 23 CFR 771.111 (a)(2) — Early coordination, public involvement, and project development
• 40 CFR 1501.2 — Apply NEPA early in the process
• Environment and Planning Linkage Processes Legal Guidance

Slide 33
Litigation Risk

Planning activities not considered a Federal action subject to review under NEPA [see 23 CFR 450.222 and 450.336]

Slide 34 How Can Planning Products be used in NEPA?

Transportation Planning

• Transportation Deficiencies and Needs
• Problem Statement
• Solutions Evaluation and Screening
• Preferred Solutions
• Documentation

NEPA Decision-making

• Project Scoping

Slide 35 Using Planning Products in the Purpose and Need

Transportation Planning

• Transportation Deficiencies and Needs
• Problem Statement

NEPA Decision-making

• Purpose and Need

Slide 36
Using Planning Products in the Development of Alternatives

Transportation Planning

• Solutions Evaluation and Screening

NEPA Decision-making

• Alternatives

Slide 37
Using Planning Products to Develop the Preferred Alternative

Transportation Planning

• Solutions Evaluation and Screening
• Preferred Solutions

NEPA Decision-making

• Alternatives
• Preferred Alternatives

Slide 38
Documentation

Slide 39
Documenting Planning-Level Information for NEPA

There are three potential levels of documentation:

• Identification of issues or concerns that will need to be studied during NEPA
• Passing data or analyses from planning to NEPA
• Accepting planning decisions in NEPA

Slide 40
Tools & Methods for Linking Planning and NEPA

Slide 41
Checklists and Manuals

Example: Colorado's PEL Questionnaire

• Provides guidance to planning staff on the level of detail needed
• Provides the NEPA project staff with documentation on the outcomes of the planning process

Available at: http://environment.fhwa.dot.gov/integ/case_colorado2_quest.asp

Slide 42
Process Changes

Example: Libby Montana Corridor Study

• Used Appendix A as a guide for corridor study
• Conducted preliminary alternatives analysis and develop the P&N
• Shift from EIS to CE on Hwy 567

Slide 43
Cross-training Staff

Example: Oregon DOT

• "Planning for Nonplanners" for ODOT project delivery staff
• NEPA training for planning staff

Slide 44
Agency Reorganization

Example: Maine DOT
Created an Environmental Coordination and Analysis unit within the Bureau of Planning

• Moved responsibility for EIS and EA preparation from Project Development and Design into Planning
• When a project leaves the Planning Bureau, it has a ROD, FONSI or CE and is ready for design.

Slide 45
Questions

Slide 46
Summary

This slide shows a graphic of how Linking Planning and NEPA and Integrated Planning weave throughout the transportation decision-making process, beginning with planning and continuing through construction, maintenance and operations.

Slide 47
Information Resources

Additional Resources:

• PEL Website: http://environment.fhwa.dot.gov/integ/index.asp
• AASHTO Integrated Transportation Planning and NEPA Decision-making Webcast: http://environment.transportation.org/center/products_programs/integrating_webcast.aspx

Contacts:
Mike Culp,
FHWA — Office of Project Development and Environmental Review
Michael.Culp@dot.gov
202-366-9229

John Humeston
FHWA — Office of Planning
John.Humeston@dot.gov
404-562-3667

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