Above and beyond MAP-21: More bang for our transportation buck James Corless, Transportation for America Rob Zako, University of Oregon James Corless, Transportation for America Rob Zako, University of Oregon DESCRIPTION: MAP-21 declares: “Performance management will transform the Federal-aid highway program and provide a means to the most efficient investment of Federal transportation funds by refocusing on national transportation goals, increasing the accountability and transparency of the Federal-aid highway program, and improving project decision-making through performance-based planning and programming.” But current reality is far from this ideal. This session will highlight best practices from states that are leveraging MAP-21 to deliver more value to taxpayers. An interactive exercise will engage participants in using performance measures to identify more cost-effective transportation investments. Technical and political challenges to using performance measures effectively will be discussed. http://www.pdx.edu/sustainability-accelerator/session_details#8A Urban Sustainability Accelerator

Warning: Interactive Late-Afternoon Session Outline MAP-21 (Rob) Exercise (James) “Fails” & A Better Approach (Rob) Above & Beyond (James) Q & A (all) Warning: Interactive Late-Afternoon Session MAP-21 (Rob): You probably already know this stuff. — 5 minutes Exercise (James): Roll up your sleeves. — 35 minutes “Fails” & A Better Approach (Rob): Why performance measures alone won’t set you free. — 10 minutes Above & Beyond (James & Rob): Better practices beyond MAP-21. — 10 minutes Q & A (all) — 15 minutes 9/22/16

You probably already know this stuff. Part I: MAP-21 You probably already know this stuff. 9/22/16

MAP-21: Declaration of Policy “Performance management will transform the Federal-aid highway program and provide a means to the most efficient investment of Federal transportation funds by refocusing on national transportation goals, increasing the accountability and transparency of the Federal-aid highway program, and improving project decision- making through performance-based planning and programming.” MAP-21 §1203(a), 23 U.S.C. §150(a): https://www.law.cornell.edu/uscode/text/23/150 Source: 23 U.S.C. §150(a) 9/22/16

MAP-21: National Goals Safety: To achieve a significant reduction in traffic fatalities and serious injuries on all public roads. Infrastructure condition: To maintain the highway infrastructure asset system in a state of good repair. Congestion reduction: To achieve a significant reduction in congestion on the National Highway System. System reliability: To improve the efficiency of the surface transportation system. Freight movement and economic vitality: To improve the national freight network, strengthen the ability of rural communities to access national and international trade markets, and support regional economic development. Environmental sustainability: To enhance the performance of the transportation system while protecting and enhancing the natural environment. Reduced project delivery delays: To reduce project costs, promote jobs and the economy, and expedite the movement of people and goods by accelerating project completion through eliminating delays in the project development and delivery process, including reducing regulatory burdens and improving agencies’ work practices. MAP-21 §1203(a), 23 U.S.C. §150(b): https://www.law.cornell.edu/uscode/text/23/150 https://www.fhwa.dot.gov/tpm/about/goals.cfm Source: 23 U.S.C. §150(b) 9/22/16

MAP-21: Performance Measures Highways National Highway Performance Program (NHPP): condition of pavement & bridges; performance of Interstate System & National Highway System Highway Safety Improvement Program (HSIP): serious injuries & fatalities Congestion Mitigation & Air Quality Program (CMAQ): traffic congestion & emissions National Freight Movement: freight movement on the Interstate System Public Transportation Transit Asset Management: condition assessment Public Transportation Safety Program: safety risk management & safety assurance MAP-21 §1203(a), 23 U.S.C. §150(c): https://www.law.cornell.edu/uscode/text/23/150 MAP-21 §20019, 49 U.S.C. §5326: https://www.law.cornell.edu/uscode/text/49/5326 MAP-21 §20021, 49 U.S.C. §5329: https://www.law.cornell.edu/uscode/text/49/5329 https://www.fhwa.dot.gov/tpm/about/summary.cfm https://www.fhwa.dot.gov/map21/qandas/qapm.cfm https://www.fhwa.dot.gov/tpm/about/nhpp.cfm https://www.fhwa.dot.gov/tpm/about/hsip.cfm https://www.fhwa.dot.gov/tpm/about/cmaq.cfm https://www.fhwa.dot.gov/tpm/about/freight.cfm Source: 23 U.S.C. §150(c); 49 U.S.C. §§5326, 5329 9/22/16

MAP-21: Responsibilities USDOT Establish performance measures States Set targets (within 1 year) Report progress (within 4 years and then every 2 years) MPOs MAP-21 §1203(a), 23 U.S.C. §§150(d)–(e): https://www.law.cornell.edu/uscode/text/23/150 MAP-21 §1202(a), 23 U.S.C. §135(d)(2): https://www.law.cornell.edu/uscode/text/23/135 MAP-21 §1201(a), 23 U.S.C. §134(h)(2): https://www.law.cornell.edu/uscode/text/23/134 https://www.fhwa.dot.gov/map21/factsheets/pm.cfm https://www.fhwa.dot.gov/map21/factsheets/snmp.cfm https://www.fhwa.dot.gov/map21/factsheets/mp.cfm Source: 23 U.S.C. §§150(d)–(e), 134(d)(2), 134(h)(2) 9/22/16

Guidance http://www.fhwa.dot.gov/planning/performance_based_planning/pbpp_guidebook/ http://www.fhwa.dot.gov/planning/scenario_and_visualization/scenario_planning/scenario_planning_guidebook/ Source: FHWA 9/22/16

History of Guidance 2003: FHWA & FTA. “Summary of Roundtable on System Performance Measurement in Statewide and Metropolitan Transportation Planning.” 2008: GAO. Surface Transportation: Restructured Federal Approach Needed for More Focused, Performance-Based, and Sustainable Programs. GAO-08-400. 2009: AASHTO. A Primer on Performance-Based Highway Program Management: Examples from Select States. RP-PBHB-1. 2010: Cambridge Systematics. Transportation Performance Management: Insight from Practitioners. NCHRP Report 660. GAO. Statewide Transportation Planning: Opportunities Exist to Transition to Performance-Based Planning and Federal Oversight. GAO-11-77. 2011: EPA. Guide to Sustainable Transportation Performance Measures. EPA 231-K-10-004. 2012: FHWA. Operations Performance Measures: The Foundation for Performance-Based Management of Transportation Operations Programs. FHWA-HOP-12-018. GAO. Surface Transportation: Financing Program Could Benefit from Increased Performance Focus and Better Communication. GAO-12-641. 2013: FHWA. Performance-Based Planning and Programming Guidebook. FHWA-HEP-13-041. 2014: FHWA. Model Long-Range Transportation Plans: A Guide for Incorporating Performance-Based Planning. FHWA-HEP-14- 046. FHWA. A Performance-Based Approach to Addressing Greenhouse Gas Emissions through Transportation Planning. FHWA-HEP-14-020. 2016: FHWA. Guidebook for Developing Pedestrian and Bicycle Performance Measures. FHWA-HEP-16-037. FHWA. Supporting Performance-Based Planning and Programming through Scenario Planning. FHWA-HEP-16-068. 9/22/16

Part II: Exercise Roll up your sleeves. Set out to learn what states are doing.. Found good things related to goals. But failure to connect dots between goals, plans, actions, results and back to goals. Disconnect between goals and what’s feasible, and between plans and action. But today, we focus on targets and metropolitan transportation planning. Want to show different models and provide food for thought—not make hard recommendations. 9/22/16

Part III: “Fails” & A Better Approach Why performance measures alone won’t set you free. 9/22/16

Performance Measurement https://www.fhwa.dot.gov/tpm/about/ Source: FHWA 9/22/16

Decision-Making https://www.planning.dot.gov/documents/GuidetoTransportationDecisionmaking.pdf Source: FHWA & FTA 9/22/16

Performance Measure “Fails” http://pic.epicfail.com/wp-content/uploads/2012/11/transportation-fail-horse.jpg 9/22/16

“Fail”: Puget Sound Regional Council 9/22/16 Measure: annual per capita vehicle miles traveled 2020: 18% below 2020 BAU projection 2035: 30% below 2020 BAU projection 2050: 50% below 2020 BAU projection Plan: regional vision, strategies, actions, funding, monitoring Court Opinion: “RCW 47.01.440 establishes statewide benchmarks to reduce annual per capita VMT. … However, RCW 47.01.440 does not impose the statewide benchmark upon PSRC’s four-county region.” http://apps.leg.wa.gov/billinfo/summary.aspx?year=2008&bill=2815 http://www.psrc.org/transportation/t2040/t2040-pubs/final-draft-transportation-2040/ http://www.psrc.org/assets/4847/T2040FinalPlan.pdf http://www.courts.wa.gov/opinions/index.cfm?fa=opinions.showOpinion&filename=675494MAJ http://caselaw.findlaw.com/wa-court-of-appeals/1640383.html v. Sources: Washington ESSHB 2815 §8; PSRC; WA Court

“Fail”: Oregon 9/22/16 Measure: annual greenhouse gas emissions from all sectors 2005: 20% below 1988 levels 1990 Oregon Task Force on Global Warming, Report to the Governor and Legislature 1995 Oregon Dept. of Energy, Report on Reducing Oregon’s Greenhouse Gas Emissions 2004 Governor’s Advisory Group on Global Warming, Oregon Strategy for Greenhouse Gas Reductions 2008 Climate Change Integration Group, Final Report to the Governor: A Framework for Addressing Rapid Climate Change 2010: Global Warming Commission, Interim Roadmap to 2020 http://www.oregon.gov/energy/gblwrm/docs/1990_Oregon_Taskforce_Report_on_Global_Warming.pdf http://www.oregon.gov/energy/gblwrm/docs/1995_Reducing_OR_GHG_Emissions.pdf http://www.oregon.gov/energy/gblwrm/docs/GWReport-Final.pdf http://www.oregon.gov/energy/gblwrm/docs/CCIGReport08Web.pdf http://www.keeporegoncool.org/sites/default/files/Integrated_OGWC_Interim_Roadmap_to_2020_Oct29_11-19Additions.pdf Source: Oregon SB 576 (1989)

“Fail”: Portland Metro 9/22/16 Measure: annual per capita greenhouse gas emissions from light vehicles 2010: 4.05 MTCO2e 2035: 1.20 MTCO2e Plan: policies & actions Missing? (Transit) funding! http://www.oregonmetro.gov/climate-smart-strategy http://www.oregonmetro.gov/sites/default/files/CSS%20Overview%20FinalMarch31web.pdf http://www.oregonmetro.gov/sites/default/files/ClimateSmartStrategy-FinalVersion-2014.PDF Source: Metro

“Fail”: Washington State 9/22/16 Measure: annual greenhouse gas emissions from all sectors 2020: 1990 levels 2035: 25% below 1990 levels 2050: 50% below 1990 levels Plan: green economy, all sectors, land use, cap & trade, offsets Results: Reductions due to: Closing aluminum plants More precipitation (hence hydropower) Less driving during Great Recession http://apps.leg.wa.gov/billinfo/summary.aspx?year=2007&bill=2815 https://fortress.wa.gov/ecy/publications/SummaryPages/0801025.html https://fortress.wa.gov/ecy/publications/documents/0801025.pdf http://www.ecy.wa.gov/climatechange/ghg_inventory.htm http://www.oregonmetro.govhttps://fortress.wa.gov/ecy/publications/SummaryPages/1402024.html https://fortress.wa.gov/ecy/publications/documents/1402024.pdf Source: Washington ESSHB 2815 §3, Dept. of Ecology

Assign Responsibility A Better Approach Set SMART Goals Assign Responsibility Plan Implement Monitor http://nitc.trec.pdx.edu/research/project/789/ Source: Lewis & Zako, NITC 789 9/22/16

A Better Approach Set SMART Goals—Specific, Measurable, Actionable, Realistic & Time-bound—and tie to feasible actions. Assign Responsibility for achieving each goal to a specific agency, and engage in setting goals matching its capabilities. Plan feasible actions that are expected to achieve the goals. Implement, and ensure the responsible agency has sufficient authority and resources to be successful. Monitor progress regularly, and revisit future goals and efforts in light of past results. http://nitc.trec.pdx.edu/research/project/789/ Source: Lewis & Zako, NITC 789 9/22/16

Better practices beyond MAP-21. Part IV: Above & Beyond Better practices beyond MAP-21. Now turn to how states are integrating efforts to reduce GHGs into existing metropolitan transportation planning frameworks. 9/22/16

Part V: Q & A James Corless Rob Zako, Ph.D. Director Transportation for America Research Associate University of Oregon 202-955-5543 541-346-8617 james.corless@t4america.org rzako@uoregon.edu http://t4america.org/ http://nitc.trec.pdx.edu/research/researc her/Zako/ 9/22/16