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3-2 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas
Once the STIP is approved by FHWA and FTA, improvement projects can move to the imple-
mentation stage.
3. UPWP. The UPWP is the management plan for an MPO. It identifies and schedules all of the
planning activities that need to be accomplished on an annual basis. It integrates policy, plan-
ning, and programming activities. It includes the activities previously defined on an annual
work program cycle, as appropriate. It is critical that freight-related activities be integrated
into the UPWP development process, because this is where the actual allocation of staff and
funding resources occurs.
Finally, it is important for users to keep in mind that freight planning should be entered into
as an evolutionary and dynamic process that provides MPO staff and the regional partners with
the opportunity to build their knowledge and expertise iteratively over time. Therefore, as ini-
tial freight planning activities are identified, it is helpful to keep in mind what the complete
process might look like if the program was developed sequentially, from start to finish. Module 4
provides a step-by-step list of activities developed in support of the Guidebook to illustrate a
comprehensive freight program. This section also provides users with a case study example of a
freight program developed in this way.
Overview of Freight Policy, Planning,
and Programming Guidelines
Specific guidelines are provided for each of the 13 freight planning subject areas listed in
Table 3.1. Each section contains the following five subsections:
· Overview. The subject area is described, including the reason it is important and the approach
the Guidebook takes to address it.
· Basic versus Advanced Approach. For each subject area, users are provided with basic and
advanced approaches for implementation. This section briefly describes the distinction
between the two.
· Key Activities. This section presents the actual guidelines for the basic and advanced approaches.
For each approach a summary of key issues is given. A "snapshot" of information is also pro-
vided. These snapshots contain information on the estimated level of effort, technical complex-
ity, and data, outreach, and training needs related to each set of guidelines. These snapshots
enable users to quickly scan basic and advanced approaches to find the approach that best suits
their needs and resources. Table 3.2 shows the information provided in these snapshots.
· Common Issues and Potential Solutions. This section describes some of the key issues or
challenges that users will face while implementing the guidelines and provides some potential
solutions.
Developing a Freight Policy Directive
Overview
The freight policy directive represents the activities required to establish the content and direc-
tion of an MPO's freight program. As part of these activities, MPO staff will work to develop a
mission statement, goals, objectives, and policies to guide freight program development. At some
MPOs, development of policy components is controlled by the governing boards, who rely on
staff to support and implement the policies after they have been adopted. In other locations, the
process is more iterative between staff and board members. These components provide a frame-
work for how funding and staff resources will be allocated to conduct freight planning activities
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Integrating Freight into MPO Activities 3-3
Table 3.1. Description of guidebook subject areas.
Subject Area Description
Freight Policy Directive · The policies set by an MPO drive the direction and content of its transportation program and can provide a frame-
work for how staff and funding resources will be allocated to conduct freight planning activities. The guidelines
provided in this section address the development and inclusion of freight-specific goals, objectives, and policies in
the transportation program.
Regional Freight Profile · A freight profile provides a description and analysis of the existing conditions in a region. It functions as the key
data source for many other activities and provides educational material for staff, partners, and the public. The
guidelines provided in this section define the elements and activities necessary to develop a regional freight profile.
Freight Needs and · The identification of needs and deficiencies specific to freight operations is a critical element in the planning process.
Deficiencies This activity provides the data and information necessary to begin to identify and develop potential improvement
projects. The guidelines in this section define the processes that can be used to identify freight needs and
deficiencies.
Freight LRP Element · The projects selected and implemented by an MPO are first identified and defined as part of its LRTP. It is critical
that freight considerations be integrated into this process. The guidelines provided in this section define ways to
develop a freight-specific element within this process.
Freight Project Identification · Once the needs and deficiencies have been defined, specific projects must be identified and developed. In many
instances, freight-specific elements can be integrated into other transportation projects, such as a roadway corridor
study as part of one or more alternatives. Other projects may be exclusively developed to address freight needs. The
guidelines provided in this section define the processes available to identify freight-specific projects.
Freight Analysis in Corridor · Corridor-specific initiatives represent major investment decisions by MPO staff and partners, including detailed
Plans/Studies alternatives analysis. To effectively address regional freight mobility issues, it is important to include freight needs
as part of these activities. The guidelines provided in this section define ways to effectively integrate freight into the
standard activities.
Freight Project Evaluation · Once projects have been identified and defined, it is critical that there be a process that allows staff to evaluate each
Criteria project on its own merits and compare it with other freight projects and other transportation projects. The results of
this activity facilitate the advancement of the project into an MPO's TIP. The guidelines in this section provide ways
to develop and use freight project evaluation criteria.
Freight Performance · Performance measures have become a critical element for many transportation planning activities. Understanding
Measures how well a program works or how effective a project is at meeting its goals is necessary to ensure staff is investing in
projects and processes that enhance the existing system. The guidelines provided in this section define processes for
evaluating freight projects using performance measures.
Funding and Innovative · Funding is an issue for all MPOs and taking on a new area, such as freight planning, without a dedicated funding
Financing Techniques source further complicates this issue. There are opportunities available to fund freight projects, such as CMAQ,
bonds, and other public-private partnerships. The guidelines in this section provide options for identifying and
accessing the types of funding opportunities that exist for freight transportation investments.
Freight Project Impact · Freight projects, like all other transportation projects, must take into consideration the impacts they have on local
Assessment and regional communities. These include factors such as economic development, the environment, environmental
justice, and land use/permitting. The guidelines provided in this section define methods for conducting these
assessment activities.
Data and Analytical Tools · Data and analytical tools feed all transportation policy, planning, and programming activities. They provide the
information and processes necessary to develop profiles, identify, and evaluate solutions, monitor progress over
time, and educate partners. Specific references to data and analytical tools are provided within each subject area.
The guidelines provided in this section define the effective use of data and tools and reflect the need for integration
with others.
Training and Education · Training and education are critical elements of effective freight transportation planning. Many staff, partners, and
the public have limited experience in the area of freight transportation and related needs and investments. To build
support for and expertise in freight transportation activities, it is important to include training and education in each
activity and as a stand alone process. Specific references to training and education are provided within each subject
area. The guidelines provided in this section define the overall training and education activities.
Outreach and Partnerships · Outreach and partnerships, in part, are directly related to education. These activities focus on data collection,
dissemination of information, and development of partnerships. Effectively engaging partners and impacted com-
munities is a critical element, because it provides the opportunity to build support and mediate conflicts. Specific
references to outreach and partnerships are provided within each subject area. The guidelines provided in this
section define the overall training and education activities.
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3-4 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas
Table 3.2. Sample freight planning snapshot.
Activity: · One of the 13 subject areas
Activity Type: · Policy, Planning, or Programming
Level of Effort: · The relative level of effort (staff time, cost, etc.) is provided for
each individual or group of steps or actions. The level of effort
is described as low, medium, or high. Each of these rankings
is defined to provide an order of magnitude estimate. Please
note that the level of effort will likely vary based on the
resources, staff, and experience of each MPO.
· Low, Moderate, or High
Technical Complexity: · The technical complexity of an activity is an important ele-
ment. It can directly impact training requirements, use of
more elaborate data or tools, and require consulting assistance.
As such, each guideline or group of guidelines is categorized
with an order of magnitude ranking of low, medium, or high.
· Low, Moderate, or High
Data/Analytical Tool Needs: · The data and analytical tool requirements for a specific guide-
line represent critical components and are identified for each
guideline or group of guidelines.
· Low, Moderate, or High
Outreach/Partnerships Needs: · Outreach and partnership activities are often important ele-
ments of specific activities and are identified for each guide-
line or group of guidelines.
· Low, Moderate, or High
Training/Education Needs: · Training and education activities can impact other activities
and are identified for each guideline or group of guidelines.
· Low, Moderate, or High
Related Activities: · Identifies key policy, planning, and programming activities
that impact or are impacted by this subject area.
and can guide specific freight planning activities undertaken by MPO staff. The policy directive
should accurately reflect the level of effort staff anticipates giving to freight policy, planning, and
programming activities. In addition, the freight policy directive should be developed to be con-
sistent with and complementary to the MPO's existing transportation plans and policies. The
purpose of the freight policy directive is to ensure that MPO leadership and staff agree upon the
direction of freight planning program and to ensure that the region's transportation system ade-
quately meets the needs of industry while minimizing impacts on other stakeholders.
Basic versus Advanced Approach
The development of an effective freight policy directive can be accomplished in a variety of
ways. Initial work in this area can be accomplished at a basic level. This can consist of incorpo-
rating the term freight into existing transportation policy language to encourage an increased
recognition and sensitivity to freight operations. The basic approach focuses on calling out both
passenger and freight within established goals and objectives, as appropriate.
A more advanced approach could involve more extensive outreach and focus groups with a
diverse set of freight stakeholders to develop a set of freight-specific policies. The advanced
approach focuses on the development of goals and objectives that specifically address regional
freight issues. These would become additional goals and objectives or represent a subset of goals
and objectives that feed into and support the overall program.
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Integrating Freight into MPO Activities 3-5
Key Activities
The development of a freight policy directive should be undertaken at the onset of freight
transportation program development. The goals, objectives, and policies that will be developed
will impact all subsequent freight activities. As part of this process, MPO staff will work inter-
nally with staff that has long been involved in policy development as part of long-range planning
activities and the overall MPO mission. In addition, it will be necessary to reach out to political
and technical leaders to build support for freight planning. More advanced activities will include
outreach to community and industry partners. The overall objective of this activity should be to
successfully integrate freight language into the established transportation program to ensure
long-term investment decisions focus on a balanced, multimodal transportation system that
meets the needs of both passenger and freight movements.
Basic Approach
Activity · Developing a Freight Policy Directive--Basic
Activity Type · Policy
Level of Effort · Low
Technical Complexity · Low
Data/Analytical Tool Needs · Low. Requires the collection and review of existing policy language.
Outreach/Partnership Needs · Low. Requires internal staff coordination.
Training/Education Needs · Low. Requires staff to begin building basic freight knowledge; should
explore resources available from FHWA.
· http://ops.fhwa.dot.gov/freight/FPD/index.asp
Related Activities · Provides foundation for all subsequent freight planning activities.
Key activity: Incorporate freight-specific language into existing transportation program
language.
Step 1. Review existing LRP goals, objectives, and policies. Staff should review existing long-
range planning documents to better understand how freight already may be incorporated within
the MPO's goals, objectives, and policies. This review of existing policy language will allow staff
to determine existing levels of freight sensitivity.
Step 2. Develop freight-specific language. Based on the Step 1 review, staff should identify
opportunities to include freight-specific references. This could consist of calling out "freight" in
areas of overall transportation system performance, such as mobility, congestion, and so forth.
For example, an MPO goal of "Improve mobility" could be changed to "Improve mobility of peo-
ple and goods."
Step 3. Incorporate freight language into LRP as amendment or as part of next update.
Once the freight language has been drafted, staff will need to build consensus and support for
the modifications. The freight enhancement language can be integrated as an amendment or as
part of the next scheduled LRP update.
Advanced Approach
Activity · Developing a Freight Policy Directive--Advanced
Activity Type · Policy
Level of Effort · Moderate to High
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3-6 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas
Technical Complexity · Moderate
Data/Analytical Tool Needs · Moderate. Requires review of existing policy language; collection of data
to support development of new language.
Outreach/Partnership Needs · Moderate. Requires discussions with private sector freight stakeholders to
facilitate development of freight policies.
Training/Education Needs · Low. Requires staff to begin building basic freight knowledge; should
explore resources available from FHWA.
· http://ops.fhwa.dot.gov/freight/FPD/index.asp
Related Activities · Provides foundation for all subsequent freight planning activities.
Key activity: Develop freight-specific goals, objectives, and policies for inclusion in the
existing transportation program.
Step 1. Establish outreach program (politicians, general public, and industry) to gather
input from key decision-makers and system users. To develop freight policy language that ade-
quately reflects a region's needs, it is necessary to gather input from a full range of transporta-
tion system stakeholders, particularly the private sector freight community, who are the primary
users of the freight system. Guidance on how to engage the private sector is provided later in this
module (see section on Outreach and Partnerships).
Step 2. Develop freight-specific goals, objectives, and policies. Based upon the input from
key stakeholders, specific language can be developed to enhance and expand current policies.
The following are examples of freight policy statements:
· Enhance connections between the current modal networks to improve the functioning of the
overall system;
· Manage the heavy demands placed on the regional infrastructure, by balancing the needs of
freight and passenger traffic;
· Remove specific constraints that act as bottlenecks in the modal networks, such as clearance
restrictions on roadway and rail links;
· Expand goods access to key regional demand centers through improved freight management,
operations, and freight-friendly infrastructure;
· Improve the array of transportation options available to regional freight users; and
· Ensure that the regional transportation system is safe and secure for both passenger and freight
traffic.
Step 3. Conduct focus group to build consensus and refine. Once the freight-specific language
has been drafted, it is important to take it back to the impacted communities to ensure buy-in and
support. This focus group could be formal (e.g., a public meeting) or informal (e.g., visits to indi-
vidual stakeholders or stakeholder groups).
Step 4. Incorporate or integrate material into overall transportation program. The final
step in the process is to formally adopt the new language into the LRP and other agency policy
documents. This incorporation will ensure that the language is reflected in transportation deci-
sions, and that it is updated regularly.
Common Issues and Potential Solutions
While the development of freight policy material relies on fairly straightforward actions, there
are a few challenges that most MPOs will have to deal with, such as building support both inter-
nally and externally and engaging private partners. The following summarizes these challenges
and provides some potential solutions.
