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Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas (2007)

Chapter: Module 3 - Integrating Freight into MPO Activities

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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
×
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
×
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
×
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
×
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
×
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
×
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
×
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
×
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
×
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
×
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
×
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
×
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
×
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
×
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
×
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
×
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
×
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
×
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
×
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
×
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
×
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
×
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
×
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
×
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
×
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
×
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
×
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
×
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
×
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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Suggested Citation:"Module 3 - Integrating Freight into MPO Activities." National Academies of Sciences, Engineering, and Medicine. 2007. Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas. Washington, DC: The National Academies Press. doi: 10.17226/14036.
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This Guidebook has introduced the importance of freight policy, planning, and programming activities and walked users through a self-assessment to establish existing needs and preliminary freight planning program direction. Module 3 helps users develop or enhance an effective freight planning program by defining specific guidelines to carry out freight program development activities. The most significant challenge for users will be to select the appropriate mix of freight planning activities to meet their initial objectives. Many of the freight planning activities defined in this module are closely integrated and should be combined to effectively develop an integrated freight planning program. For example, a regional freight profile supports the identification of freight needs and deficiencies, which feeds information and data into the freight element of a long-range plan (LRP). Very few of these freight planning activities exist in a vacuum, so it is critical that users understand how these specific activities fit within the context of their existing transportation plan- ning program. As with other disciplines, freight planning activities should ultimately feed into and integrate with the overall local or regional transportation program. In fact, the success of freight policy, plan- ning, and programming activities is directly linked to the ability to successfully integrate all of the activities defined in the Guidebook into the transportation program. For example, pedestrian, bike, transit, and roadway needs are planned, prioritized, and funded within a metropolitan planning organization’s (MPO) long-range transportation planning and programming process. For freight issues to be similarly mainstreamed within a metropolitan transportation planning process, freight must become part of the following three areas: 1. Long-Range Planning. Long-range planning includes development and maintenance of LRPs, data collection and analysis programs, corridor plans and analyses, and stand alone research and planning initiatives. Integrating freight into these activities is a fundamental first step for an MPO because it includes many of the initiatives that practitioners begin with, such as development of a freight study or any of the specific technical elements that support an overall study (e.g., truck volume maps, freight system map, needs identification, outreach, land use, modeling). Most of the activities can be undertaken at low or high cost/efforts. 2. Transportation Improvement Programming. Transportation improvement programming is a more specific group of activities. Every 1 to 2 years, the proposed improvement projects, plans, studies, and other activities expected to occur over the next 3 to 5 years are taken from the LRP and entered into the programming process, which culminates in the development of a TIP and statewide Transportation Improvement Program (STIP). TIPs and STIPs are fiscally constrained, so each project identified must include a cost estimate and an anticipated fund- ing source. To aid in the development of these estimates, many potential projects undergo an initial assessment not only of their scope, but also of their anticipated environmental impacts. 3-1 M O D U L E 3 Integrating Freight into MPO Activities

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 3-2 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas

Integrating Freight into MPO Activities 3-3 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 Deficiencies • The identification of needs and deficiencies specific to freight operations is a critical element in the planning process. 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 Plans/Studies • Corridor-specific initiatives represent major investment decisions by MPO staff and partners, including detailed 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 Criteria • Once projects have been identified and defined, it is critical that there be a process that allows staff to evaluate each 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 Measures • Performance measures have become a critical element for many transportation planning activities. Understanding 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 Financing Techniques • Funding is an issue for all MPOs and taking on a new area, such as freight planning, without a dedicated funding 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 Assessment • Freight projects, like all other transportation projects, must take into consideration the impacts they have on local 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. Table 3.1. Description of guidebook subject areas.

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. 3-4 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas 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. Table 3.2. Sample freight planning snapshot.

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 Integrating Freight into MPO Activities 3-5

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. 3-6 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas

Common Issue Potential Solution Limited freight expertise by technical staff. Most MPOs have technical advisory committees that advise and support MPO initiatives. In many instances, building support for freight inclusive language in the transportation program will be challenged by lack of experience in this area, as well as the overriding sentiment in many locations that freight is handled by the private sector. Political opposition. MPO leadership is often driven by local politicians who work to improve the transportation system for their constituents. The general public’s aversion to heavy industry and truck traffic often encourages politicians to respond in a restrictive manner toward freight as opposed to promoting freight friendly programs. Stakeholder participation. Historically, it has been a challenge to engage the private sector given the difference in planning horizons and a focus on operations versus long-term planning, and the time commit- ments required for effective participation. Developing a Regional Freight Profile Overview A regional freight profile is essentially a primer for understanding a region’s freight trans- portation system. The regional freight profile typically summarizes the geographic area, such as its land mass and the percentage of land devoted to and people employed in different types of industries (e.g., agriculture, manufacturing, and service). It also includes a high-level overview of the transportation infrastructure, including rail, roadway, ports, airports, and pipelines, not- ing the key features and relative importance of each to the region. Population centers within the region are usually identified in regional, state, and national terms. Many regional profiles also identify the natural resources in an area that contribute to its base freight transportation needs. Examples include natural deposits of oil, coal, gypsum, and timber, as well as water resources such as bays and rivers. These resources typically drive a number of primary industries associ- ated with leveraging the resources. The sources and causes of any seasonal variations in freight volumes are identified along with an indication of the importance of such swings within the local economy and its impact of freight movement within the area. The types of information captured and provided in a regional freight profile are relatively con- sistent between MPOs of any size, differing primarily in terms of information depth and complexity as dictated by area specifics. For example, a small MPO that is located in an area that is distant from any major highway system and lacks significant air, rail, or water freight transportation Integrating Freight into MPO Activities 3-7 Investigate training and education opportunities. There are a number of training and education opportunities available to MPO staff to enhance understanding of freight, its common issues and concerns, and how it can be more effectively integrated within a transportation planning process. See Module 5 for a list of training and education resources. Develop champions and advocates for freight and freight planning. Few local decision-makers and general public members understand the link between efficient freight movements and quality of life. The selection of fresh fruits and vegetables in the middle of winter; the ability to have a package delivered anywhere in the country overnight; and even the coal, oil, and natural gas that heat our homes and power our cars all depend on an efficient, intermodal freight transportation system. In addition, an efficient freight system is often a key component of business expan- sion and relocation decisions. Articulating the positive benefits of freight and the link between freight and eco- nomic development can help create advocacy for freight planning. Develop outreach strategies. There are a number of strategies that can be employed to more fully engage the private sector freight community. The Outreach and Partnerships section in this module describes some of the more successful strategies.

networks would have a less complex regional freight profile than a larger MPO that has a full range of modal options and networks. However, the process and fundamental elements necessary to develop a regional freight profile would be similar. Basic versus Advanced Approach The major distinguishing characteristics between preparing a basic versus an advanced regional freight profile involves the effort expended in two primary areas: (1) the breadth and extent of stakeholder involvement and (2) the amount of freight data captured and analyzed. Basic regional freight profiles tend to involve less stakeholder involvement (in terms of number and extent of stakeholder participation) while capturing or using fewer sources of freight infor- mation. More complex or advanced efforts to create regional freight profiles involve significant stakeholder participation and expanded capture of or use of freight data. Some correlation exists between the effort required to update or produce a regional freight profile and the relative size of the MPO or the complexity of its transportation network. Accord- ingly, small MPOs or MPOs in regions dominated by single industries or with fewer transporta- tion modes and options (and with lower volumes of freight traveling through the region without stopping) should be able to produce a satisfactory profile with less stakeholder involvement or data collection than a larger MPO or one with a more diverse and complex freight system. In practice, however, the detail and analysis contained in a regional freight profile tends to reflect the resources available, with additional resources resulting in higher levels of stakeholder involvement and data collection and analysis. MPO staff is encouraged to devote the resources necessary to develop a comprehensive and accurate regional freight profile because it represents the foundation for subsequent freight planning efforts. Key Activities The freight summary for the region should be organized around three key components. The first component is the freight transportation infrastructure. This consists of the physical and operational attributes available for each modal system, such as key routes and facilities, industry use, physical condition, and traffic volumes. The second component is a commod- ity flow summary that describes the tonnage and value of freight shipments moving into, out of, through, and within the region. The third element of the freight system profile focuses on incorporating other transportation-related factors, such as economic development, land-use, safety, and environmental impacts. The combination of these components provides an illus- tration of what the regional freight system is, how it is being used, and how it impacts the community (and vice versa). The regional freight profile should identify major freight service providers (motor carriers, railroads, airports, etc.), distributors (warehouses, port terminals, etc.), and their geographic locations. Centers of motor carrier break-bulk and intermodal freight operations need partic- ular attention and notation because they impact traffic operations within a region somewhat dif- ferently than other freight operations. Information on the freight volumes being transported through a region can be more challenging to capture. The MPO survey conducted as part of this project identified the use of truck counts as the most common means of capturing this infor- mation, followed (in descending order) by the use of Highway Performance Monitoring System (HPMS) data, origin-destination surveys, and commodity flow surveys (CFSs). Other sources included FHWA’s Freight Analysis Framework (FAF), air cargo data, and Reebie TRANSEARCH commodity flow data. Much of the basic information needed to develop a regional freight plan and supporting documentation is available from local government offices, libraries, chambers of commerce, and economic development offices. 3-8 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas

MPOs should engage regional freight stakeholders in the process of creating the regional freight profile as part of the holistic approach to involving and engaging the freight community. These stakeholders can provide valuable input on historical, current, and future freight and economic trends that have important competitive implications for the region. Local traffic clubs1 and supply-chain logistics organizations2 provide outreach sources that can be particularly valuable in terms of identifying local industry partners. Local chambers of commerce and local economic development organizations also provide access to economic data sources as well as identify local business leaders. Basic Approach Activity • Developing a Regional Freight Profile—Basic Activity Type • Planning Level of Effort • Moderate Technical Complexity • Low Data/Analytical Tool Needs • Moderate. Requires collection of available data and limited stakeholder outreach. Outreach/Partnership Needs • Moderate. Requires completion of a limited number of interviews and contact and engagement of local freight organizations. Training/Education Needs • Low. Requires staff to begin building basic freight knowledge and become familiar with available data; should explore resources available from FHWA. • http://ops.fhwa.dot.gov/freight/FPD/index.asp Related Activities • LRP Freight Element, Freight Analysis in Corridor Plans and Studies, Freight Needs and Deficiencies. Key activities: Develop a high-level overview of the regional freight system. Step 1. Conduct limited outreach to key regional freight partners. Identify and meet with a small number of key freight stakeholders to begin to build an understanding of the local freight system, how it is used, and what are its weaknesses or bottlenecks. This can often be accom- plished via phone calls or site visits to individual stakeholders. Step 2. Develop freight system infrastructure maps. Using available MPO, state, and federal resources, develop a freight system map of the region. This should include major roadways, intermodal connectors, railroads, intermodal terminals, port facilities, and airports. Any read- ily available information on additional load centers (such as warehouse and distribution centers or trucking terminals) should be included. Step 3. Review aggregate commodity flow data. The FAF and CFS are available on-line from FHWA and Bureau of Transportation Statistics (BTS), respectively. They provide commodity flow profiles for state and National Transportation Analysis Regions (NTAR). Although these geographic levels are much larger than an MPO region, in lieu of more costly data, they can pro- vide general characteristics for the region, such as key commodities, mode shares, and inbound- outbound splits. Step 4. Summarize key socioeconomic data. Review key regional trends in employment and population growth. Many MPOs already maintain these data. For the freight profile, they should Integrating Freight into MPO Activities 3-9 1Such as Delta Nu Alpha, a transportation and logistics society, http://www.deltanualpha.org. 2Such as APICS, the Association for Operations Management, http://www.apics.org, or the Council of Supply Chain Management Professionals, http://www.cscmp.org/.

use types of employment and overall growth throughout the region to monitor freight trans- portation needs in the future. Many of these data are also available from (a) federal sources, such as the Census Bureau or Bureau of Economic Analysis, (b) state sources, such as state depart- ments of labor and employment, and (c) universities. Step 5. Develop high-level regional freight profile. Based on these steps, MPO staff should develop a summary of the material to be used to describe the regional freight system. This can serve as the beginning of a freight program and a place holder for a more comprehensive LRP freight element. Advanced Approach Activity • Developing a Regional Freight Profile—Advanced Activity Type • Planning Level of Effort • High Technical Complexity • Moderate Data/Analytical Tool Needs • High. Requires collection or purchase of new regional freight data; signifi- cant outreach to private partners; review of region’s travel demand model. Outreach/Partnership Needs • High. Requires completion of interviews, focus groups, and surveys; development of freight technical advisory committee. Training/Education Needs • Moderate. Requires staff to build on basic freight knowledge, particularly relating to available data, analysis, and stakeholder outreach; should explore resources and training available from FHWA and National Highway Institute (NHI). • http://ops.fhwa.dot.gov/freight/FPD/index.asp Related Activities • LRP Freight Element, Freight Analysis in Corridor Plans and Studies, Freight Needs and Deficiencies. Key activities: Develop a comprehensive regional freight profile. Step 1. Conduct outreach to private industry serving the region (see Data and Analytical Tools section in this module). MPO staff should identify and interview key regional freight part- ners to collect input on the freight system and its operation. Step 2. Develop infrastructure and service profiles for each mode of transportation in the region. Summarize available data into a comprehensive description of the regional truck, rail, intermodal, air, water, and pipeline freight networks. This will include information on key routes, carriers, terminals, and service characteristics. A global information system (GIS) will be used to illustrate these modal systems, based on available databases. Step 3. Analyze the commodity flow data. Commodity flow data are available from several sources. The most disaggregate data are provided at cost from Global Insight, Inc. (TRANSEARCH). The BTS also provides data via the CFS. MPO staff must determine the best resource for the region based on available funds and the overall complexity of their system. A detailed commodity flow analysis would summarize the following: • Overall volume and value of freight moving into, out of, within, and through the region; • Major domestic trade partners; • Key commodities moving into, out of, within, and through the region; and • Modal shares for freight moving into, out of, within, and through the region. 3-10 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas

Step 4. Identify and analyze international trade data. Review and analyze the international trade data available from border crossings, air cargo operations, and seaports. Step 5. Describe examples of regional logistics patterns. It is important to understand what is moving, how it is moving, why it is moving in that way, and what the operational constraints and bottlenecks are for industries based in your region. MPO staff should work with private part- ners to document logistics patterns for key regional industries to illustrate the types of decisions made on a daily basis to operate successfully in a competitive market. The following highlights the types of questions that need to be answered to accomplish this goal: • General Business Description. Describe your primary business. What product or service do you provide? Why are you located here? Where do you have other facilities? How many employees do you have? Do you manage your own transportation and logistics? Do you own your transportation equipment? • Describe Inbound Movements. What are the primary raw materials brought in for produc- tion? Where are your suppliers located, geographically? Does your selection of suppliers depend on their business location? How do you place orders? Is it technology driven (auto- mated)? What modes are used for delivery of these materials? Why do you use these modes? Are your materials mode-specific or dependent? How many truck loading/unloading docks do you have? Do you have a rail siding? What volume of freight do you receive weekly or monthly (by mode)? What service requirements do you have for these shipments? Do you have any penalties for late or missed shipments? • Describe Production Process. Is your manufacturing process automated? If so, what system are you using? How important is timeliness of delivery to your production lines? How do you ensure reliable delivery? Do you require service contracts? Do you maintain an inventory of raw materials? If so, how many days worth? If not, are you operating on just-in-time? Have you ever had to shut down a production line because of a missed shipment? How long does a production run take? Are your orders customized or do you make standard products? Do you maintain an inventory of finished products? If so, how many days worth? Do you have your own warehouse space? • Describe Outbound Flows. What are the primary products manufactured or distributed? How do customers place orders? Is it technology driven (automated)? What modes are used for delivery of these products? Are your products mode-specific or dependent? How many truck loading/unloading docks do you have? Do you have a rail siding? What volume of freight do you send out weekly or monthly (by mode)? What service requirements do you have for these shipments? Do you have any penalties for late or missed shipments? • Identify Specific Operational Issues. What are the strengths of the region’s transportation infrastructure? What are the weaknesses of the region’s transportation infrastructure? How could the existing infrastructure be operated differently to improve your operations? How could the existing infrastructure physically be changed to improve your operations? Can you identify specific needs? Step 6. Work with MPO modeling staff to develop truck trip estimates for the region. Key truck corridors can be identified using a combination of model assignments and truck counts. Understanding truck travel patterns helps staff identify regionally significant freight roadways as well as prioritize future roadway improvement projects. Based on what is available, it may be necessary to use the Quick Response Freight Manual to estimate truck trips generated or attracted by traffic analysis zones to help identify key freight roadways. Step 7. Review the impact of other transportation-related factors. Data available on components of the community that impact freight transportation should be analyzed. This Integrating Freight into MPO Activities 3-11

3-12 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas will include basic sociodemographic trends (population, employment, etc.), land-use pat- terns, environmental impacts of new projects, and safety concerns with existing systems and proposed projects. Step 8. Develop the regional freight profile. The above steps provide the data and findings necessary to develop a regional profile. This should consist of GIS-based maps of the infrastructure and operations, descriptions of existing freight operations, and a summary of key sociodemo- graphic and land-use development patterns. This profile should be used to support other related activities, such as an LRP freight element. Common Issues and Potential Solutions The development of a regional freight profile can encounter several challenges. The first obstacle is that many MPO staff will be undertaking this activity for the first time. This requires that staff take the initiative to search out available data sources and take advantage of education and training opportunities, as well as examples of best practices available from counterparts in other MPOs. Other challenges include availability of data, funding for freight data, and engaging private sector partners. The following summarizes the key challenges and offers potential solutions. Chittenden County MPO—Developing Regional Freight Profile The Chittenden County MPO, MPO for Burlington, Vermont, provides an excellent example of how to develop a freight profile. This MPO developed a comprehen- sive regional freight profile using consulting resources and through close coordi- nation with a similar statewide effort underway by the Vermont Agency of Transportation (VAOT). The profile included descriptions and maps of the freight infrastructure and its operational characteristics; an economic and demographic summary that described employment and population trends; a commodity flow analysis that summarized volume and value of freight moving in the region, the mode splits, and key trade partners. In addition, the MPO benefited from shipper/receiver and motor carrier mail out surveys, and truck driver origin-destination inter- cept surveys conducted by VAOT. Interviews also were conducted with regional shippers and carriers; data collected were used to describe supply chain management practices. In addition to the data and analyses, the MPO organized a Freight Technical Advisory Committee which met several times throughout the project. Data and analyses were presented to this group and their feedback and input were included in the development of the freight profile. The freight profile was a backbone of the overall freight plan being developed. The plan included the full profile; in addition, it summarized findings and conclusions and presented recommendations for further freight program development. For a more detailed review of the profile, readers are referred to the following link on the MPO’s web site: http://www.ccmpo.info/library/freight/chitt_freight_prof_1.pdf

Common Issue Potential Solution Lack of freight expertise. Existing staff expertise will likely not cover all the technical areas addressed by a regional freight profile. Staff members will need to familiarize themselves with the resources outlined in Module 5 of the Guidebook, as well as the data that are available locally. Lack of freight data. Data availability is one of the most significant challenges of freight transpor- tation planning. Much of the data are considered proprietary by private partners; in addition, many publicly available sources are aggregated to levels above an MPO region. Furthermore, available resources are often not available to conduct exten- sive data collection, such as truck driver origin- destination surveys; or to purchase private data, such as TRANSEARCH commodity flow data. This can limit the completeness of a regional freight profile. Private partner participation. Private sector partners represent a unique source of data, both in qualitative perceptions of the system, as well as quantitative volume information. However, many such partners are reluctant to share their data for fear of losing their competitive advantage. This issue requires building trust with private industry. Identifying Freight Needs and Deficiencies Overview The identification of freight needs and deficiencies is a planning activity that identifies gaps between existing freight system conditions and capabilities and the projected freight transportation needs for the area. This is a critical element of an MPO’s transportation pro- gram, because it feeds the identification, development, and implementation of improvement projects. The process of identifying freight needs and deficiencies is driven by data collection and analysis and stakeholder input. Regional operational conditions (level of service [LOS] on regional roadways, congestion, high-accident locations, inadequate roadway geometrics, modal capacity constraints, etc.) are used to establish the areas where the needs or deficien- cies may be most prevalent. Most MPOs already will have access to data specific to roadways, although staff may not have reviewed these data from the perspective of freight operations. Condition of intermodal connectors, access to industrial areas, and key truck crash locations represent the types of information necessary to fully identify roadway freight needs. In addi- tion to roadways, this process must evaluate the operations of other modes. For example, dredging needs for ports and waterways, the ability of the region’s rail system to handle double- stack operations, and adequate airport runway length for cargo operations are critical elements to consider. Integrating Freight into MPO Activities 3-13 Investigate training and education opportunities. There are a number of training and education oppor- tunities available to MPO staff to enhance under- standing of freight, its common issues and concerns, and how it can be more effectively integrated within a transportation planning process. Chittenden County MPO worked closely with its state partners and since completing the study has attended freight training provided by FHWA through NHI. Investigate freight data sources. There are a number of publicly available freight data sources and data techniques that can be useful to metropolitan freight planning efforts. State DOTs, FHWA, and other agencies are potential sources of freight data that can be used in the development of a regional profile. In Chittenden County’s case, the state DOT provided county-level commodity flow data at no cost to the MPO. In addition, the MPO benefited from mail out surveys to motor carriers and shippers and receivers, as well as origin-destination truck driver surveys conducted by the state. Develop outreach strategies. There are a number of strategies that can be employed to more fully engage the private sector freight community. Chittenden County MPO developed and maintained a freight advisory committee (FAC) throughout the develop- ment of its freight plan.

Basic versus Advanced Approach Differences between “basic” versus “advanced” freight needs and deficiencies efforts primarily relate to the cumulative level of effort in the freight planning process. Two of the major variables are the freight data collection efforts and the involvement of freight stakeholders. Many MPOs lack adequate detail on the performance and condition of their freight transportation system. The extent to which MPOs attempt to secure additional information through direct data collection or through purchase of information from private sources is a major variable in such efforts. This information provides the quantitative information that drives the needs and deficiencies process. The depth and extent of freight stakeholder involvement is another distinguishing factor between basic versus advanced freight needs and deficiencies activities. At a basic activity level, the MPO may choose only to involve a small group of freight stakeholders and limit their involvement to confirming the accuracy of information gathered and deficiencies defined. In an advanced effort, the small group of stakeholders might be expanded to a much larger group and participate in a series of meetings at each process step, such as conducting facilitated meetings to generate a group consensus of regional freight needs and deficiencies. As in other planning activity discus- sions, the engagement of freight stakeholders is a key success factor in conducting a successful needs and deficiencies activity. Key Activities The needs identification process expands on the regional freight profile, using the available data and analyses to focus on areas of improvement. The profile summarizes what the region has and how well it works; the needs and deficiencies statement packages this information, along with anticipated future demand, and focuses on identification of key bottlenecks that need to be effectively managed to ensure continued or enhanced regional mobility, safety, security, and eco- nomic vitality. The needs and deficiencies statement will be used to identify and develop freight improvement projects. MPOs vary in terms of the number and complexity of freight operations. The resulting doc- umentation of freight needs and deficiencies should reflect the relative complexity of the regional freight system (e.g., some MPOs will have limited or no significant water, pipeline, or rail operations, other MPOs may be dominated by one of these modes). Accordingly, the level of effort devoted to identifying needs and deficiencies by freight mode vary for small- to medium-sized MPOs. Basic Approach Activity • Identifying Freight Needs and Deficiencies—Basic Activity Type • Planning Level of Effort • Moderate Technical Complexity • Low Data/Analytical Tool Needs • Moderate. Relies on work completed as part of the regional freight profile; limited outreach to private partners. Outreach/Partnership Needs • Low. Requires limited interviews and focus groups with a small number of private partners. Training/Education Needs • Low. Requires staff to apply basic freight knowledge to needs identification activities in coordination with outreach; should explore resources available from FHWA. • http://ops.fhwa.dot.gov/freight/FPD/index.asp Related Activities • Regional Freight Profile, Freight Element of LRP, Freight Project Identification. 3-14 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas

Key activities: Develop high-level description of key regional freight needs and deficiencies. Step 1. Review regional freight profile. This step assumes a regional freight profile has been developed. A regional freight profile typically serves as the starting point for the needs and defi- ciencies analysis, because it summarizes the existing system and its condition. If no regional pro- file exists, it is recommended that staff consider developing one before conducting a detailed needs and deficiencies statement. If that is not possible, staff should use available data and con- duct a limited number of interviews with regional freight stakeholders. Key operational charac- teristics available from the profile should be used to help staff identify key performance gaps impacting freight operations, such as • Congestion locations using LOS, speed, and delay; • High-accident locations involving commercial vehicles; • Geometrically constrained roadways and intersections impacting truck access to key load centers; and • Inadequate loading/unloading zones in downtown areas. Step 2. Identify key freight needs and deficiencies. Based on the profile, staff should identify key bottlenecks. These should consist of locations that have been identified as at or above capacity, high rate of accidents or safety issues, geometric constraints, and locations identified by private partners. If the MPO has not prepared a regional freight profile, the needs and deficiencies should be based on the available data and limited stakeholder interviews. The supply chain analyses completed as part of the regional freight profile should be used to highlight the transportation system performance factors important to the region’s industries. These factors should be used in coordination with the operational characteristics to identify the most critical freight needs and deficiencies, which will be documented in Step 3. These factors include, but are not limited to the following: • Travel time, • Reliability, • Speed, and • Multimodal access. Step 3. Develop summary of high-priority needs. The complete list of needs and deficien- cies should be reviewed by MPO staff. This internal review will provide the opportunity to iden- tify those that are critical to the region. The selected needs should be summarized and used to support the identification and development of improvement projects. MPOs may wish to con- sider displaying these needs, deficiencies, or bottlenecks on a GIS map, if appropriate. Advanced Approach Activity • Identifying Freight Needs and Deficiencies—Advanced Activity Type • Planning Level of Effort • High Technical Complexity • High Data/Analytical Tool Needs • High. Relies on work completed as part of the regional freight profile; significant outreach to private partners through interviews, focus groups, formation of a freight technical advisory committee. Outreach/Partnership Needs • High. Requires completion of significant interviews and focus groups with a small number of private partners; organize and implement freight technical advisory committee. Integrating Freight into MPO Activities 3-15

Training/Education Needs • Moderate. Requires staff to apply more advanced freight knowledge to needs identification activities; this will require significant coordination with outreach and partnership activities; should explore resources and training available from FHWA and NHI. • http://ops.fhwa.dot.gov/freight/FPD/index.asp Related Activities • Regional Freight Profile, LRP Freight Element, Freight Project Identification. Key activities: Identify and document freight needs and deficiencies. Step 1. Review regional freight profile. This step assumes a regional freight profile has been developed. A regional freight profile typically serves as the starting point for the needs and defi- ciencies analysis, because it summarizes the existing system and its condition. If no regional profile exists, it is recommended that staff consider developing one before conducting a detailed needs and deficiencies statement. The advanced approach relies on significant data and should not be undertaken without a freight profile. Key operational characteristics available from the profile should be used to help staff identify key performance gaps impacting freight operations, such as • Congestion locations using LOS, speed, and delay; • High-accident locations involving commercial vehicles; • Geometrically constrained roadways and intersections impacting truck access to key load centers; and • Inadequate loading/unloading zones in downtown areas. Step 2. Identify preliminary list of freight needs and deficiencies. The profile will pro- vide MPO staff with infrastructure and operations data which will support the identification of regional freight needs and deficiencies. These should consist of locations that have been identified as at or above capacity, high rate of accidents or safety issues, geometric constraints, and locations identified by private partners. The supply chain analyses completed as part of the regional freight profile should be used to highlight the transportation system performance factors important to the region’s industries. These factors should be used in coordination with the operational characteristics to identify the most critical freight needs and deficien- cies, which will be documented in Step 3. These factors include, but are not limited to the following: • Travel time, • Reliability, • Speed, and • Multimodal access. Step 3. Conduct additional data collection. Once the list of needs and deficiencies has been identified, MPO staff should identify and collect additional data to provide for a more detailed description and analysis of the specific needs. Using this information, staff will validate the list. Data collection could include traffic counts, field observations and inspections, and additional stakeholder outreach. Step 4. Conduct focus groups with private partners to validate and flesh out the key regional needs. After the additional data have been collected and the needs have quantitatively been validated, focus groups should be conducted to engage the private sector. This could include use of a freight technical advisory committee. This provides the opportunity to build support for 3-16 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas

potential improvement projects and also provides private partners with the ability to confirm that the list is accurate and complete. Step 5. Develop list of key freight needs and deficiencies. After completing Steps 1 through 4, the final list of needs and deficiencies should be documented. This should consist of a needs state- ment that defines and describes each constraint. Step 6. Develop recommended solutions to guide project identification and development. Once the MPO has identified the nature and scope of freight deficiencies, it must begin to iden- tify tactical ways to address these problems. At this point in the planning process, such solutions typically consist of broad statements such as, add additional lane capacity or construct left turn bay. The identification of specific projects will be addressed as a separate activity (see the Iden- tifying Freight Projects section in this module). Common Issues and Potential Solutions The development of a comprehensive needs and deficiencies statement for freight trans- portation is limited by data, staff expertise, and dependence on other activities in the planning Integrating Freight into MPO Activities 3-17 Association of Central Oklahoma Governments (ACOG)—Identifying Freight Needs and Deficiencies ACOG, the MPO for the Oklahoma City Regional Transportation Study (OCARTS) area, is an example of an MPO that has developed an effective process for identi- fying freight needs and deficiencies as part of its long-range planning process. Of particular note is the involvement of a wide range of freight stakeholders and the ability to take advantage of existing training and education resources (peer exchange program). ACOG has effectively involved the freight community in its region as part of its long- range planning process. In advance of LRP updates, staff distributes transportation surveys to help identify specific needs, and has held focus groups and meetings to gather input on policy issues. These mechanisms were used to develop the initial intermodal element of the 2020 LRTP. For its 2025 LRTP update, staff called on a panel of peer experts in coordination with the FHWA peer-to-peer program; this included a consultant, the Mid- America Regional Council (MARC, MPO for the Kansas City region), and FHWA’s Resource Center. ACOG staff presented its freight profile to this group of experts. Following a review, the panel came back with a long list of recommendations. These recommendations were added to the profile and then presented to local stakeholders, including Oklahoma DOT, railroads, trucking association, rail association, and trucking companies. Following review and comment by the stake- holders, the freight profile and recommendations were incorporated into the LRTP. The local stakeholders were the same companies and agencies involved in the initial intermodal element completed as part of the 2020 LRTP update. As part of the 2025 LRTP update, ACOG evaluated future truck routes using its travel demand model.

and programming process. The following summarizes the key challenges and offers potential solutions: Common Issue Potential Solution Lack of freight expertise. Although MPO staff goes through a similar process with every plan and program update to develop the LRP and TIP, many may be challenged by the identification of transportation system needs from the freight perspective. This could especially be true for nonroadway projects. Lack of freight data. This activity relies heavily on an established freight profile, which provides a variety of data sources. Freight data have historically been lacking in many regions, and will continue to be until staff has integrated it into the ongoing data collection and management program. Dependence on other activities. The needs and deficiencies statement evolves from the regional freight profile. It expands on the profile to spe- cifically call out needs. These needs are then fed into the project identification process. The needs identification process has limited usefulness as a stand alone activity. Developing a Freight Element of a Long-Range Plan Overview The long-range transportation planning process is the backbone of an MPO’s transportation program. It allows communities to provide input to the regional needs and the development of improvement projects. The planning work completed as part of this process drives the program- ming work undertaken as part of the development of the TIP. As such, for freight to be successfully mainstreamed within an MPO, it must first be represented in the LRP. Many of the subsequent activ- ities described in this Guidebook depend on and integrate with a freight element of an MPO’s LRP. In addition, the efficiency of a region’s freight transportation system directly impacts its eco- nomic competitiveness and vitality. The ability of industry to move raw materials and finished products to their respective markets is one of the major considerations when businesses evalu- ate expansion and relocation options. Freight transportation operations also represent one of the areas that the general public typically want minimized or restricted to specific corridors and facil- ities. Integrating freight into the LRP provides the opportunity to maximize the ability of an MPO to accommodate freight industry needs while preserving community values. Basic versus Advanced Approach Development of a comprehensive freight element for inclusion in an MPO’s LRP is a significant undertaking, especially if staff has not previously conducted any freight initiatives. However, many MPOs will need to develop freight elements as an iterative process, starting out initially with more basic information. The basic approach defined here focuses on the development and insertion of freight sensitive language, which should be developed as part of the Freight Policy Directive and 3-18 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas Investigate training and education opportunities. There are a number of training and education oppor- tunities available to MPO staff to enhance under- standing of freight, its common issues and concerns, and how it can be more effectively integrated within a transportation planning process. Develop a regional freight profile. The completion of a regional profile can provide an MPO with a better understanding of the regional freight system region. The data and information collection activities con- ducted as part of a regional freight profile develop- ment can directly feed into the identification of needs and deficiencies. Designate a Freight Point-of-Contact (POC). A freight technical lead should be designated within the MPO. This POC can act as the liaison between the MPO’s various transportation initiatives and between the MPO and other agencies and stakeholders, ensuring that freight issues are addressed within multiple MPO activities. Note that the success of the POC may be limited if the MPO lacks the necessary freight sensitive corporate culture to support the POC’s activities.

an initial description of the region’s freight system, including operations and infrastructure. This also should include identification and outreach to regional freight stakeholders. The advanced approach focuses on a more detailed set of activities that lead staff from the development of freight policy through the identification of needs and deficiencies and improvement project concepts. Key Activities The development of a freight LRP element incorporates many of the activities defined in the Guidebook. In addition, it feeds into and supports the other activities. As such, this is a critical element in a successful freight program. The key activities focus on all three areas of policy, plan- ning, and programming. Development of policies is a key component in the initial long-range planning activities. Planning activities represent the most significant element of the LRP, because policies are combined with the available data and applied to the transportation system to identify needs and deficiencies and subsequently develop potential solutions. Programming comes into play as the solutions are advanced and prioritized into investment decisions. The activities defined describe basic and advanced options for undertaking freight-specific long-range planning. Basic Approach Activity • Developing a Freight Element of a LRP—Basic Activity Type • Policy and Planning Level of Effort • Moderate Technical Complexity • Moderate Data/Analytical Tool Needs • Moderate. Relies on work completed as part of regional freight profile and freight needs and deficiencies; limited outreach to private partners through interviews and focus groups. Outreach/Partnership Needs • Moderate. Requires limited outreach to private partners through inter- views and focus groups; builds on earlier outreach efforts. Training/Education Needs • Moderate. Requires staff to apply basic freight knowledge to the long- range planning process; should explore resources and training available from FHWA and NHI. • http://ops.fhwa.dot.gov/freight/FPD/index.asp Related Activities • Freight Policy Directive, Regional Freight Profile, Freight Needs and Defi- ciencies, Freight Project Identification, Data and Analysis Tools, Outreach and Partnerships, Training and Education. Key activity: Integrate freight concepts into the LRP. Step 1. Develop a regional freight policy (see the Developing Freight Policy Directive sec- tion in this module). One of the first actions in the development or update of an LRP focuses on the regional goals and objectives. These provide the overall guidance and direction of the LRP. It is critical to address freight as part of this process. Step 2. Summarize and describe the regional freight system (see the Developing a Regional Freight Profile section of this module). To plan at a system level, staff must have an overall under- standing of what the transportation system encompasses and how individual modes work together. Freight cuts across all modes and has its own operating characteristics. The freight pro- file can be used to identify needs or bottlenecks and can also be used to educate the community. Step 3. Conduct outreach to regional freight stakeholders to collect information on oper- ations and needs (see the Outreach and Partnerships section in this module). In addition to the regional description, it is critical that the users of the system be given an opportunity to identify the system’s strengths and weaknesses. Integrating Freight into MPO Activities 3-19

Step 4. Prepare summary of Steps 1 through 3 as a description of a freight element for the LRP. Based on these steps, staff can develop a summary that provides a snapshot of the regional freight system and its condition. This summary would vary from region to region, depending on the results of the regional freight profile and the data and information collected as part of Step 3. This process will provide the foundation for more advanced work to be completed as the program evolves. Advanced Approach Activity • Developing a Freight Element of a LRP—Advanced Activity Type • Policy and Planning Level of Effort • High Technical Complexity • High Data/Analytical Tool Needs • High. Relies on work completed as part of the regional freight profile and freight needs and deficiencies activities; requires significant outreach to private partners through interviews, focus groups, and formation of a freight technical advisory committee. Outreach/Partnership Needs • High. Requires significant outreach to private partners through inter- views, focus groups, public meetings, and a freight technical advisory committee. Training/Education Needs • High. Requires staff to apply advanced freight knowledge to a full range of transportation planning activities, including the long-range planning process; should explore resources and training available from FHWA and NHI. • http://ops.fhwa.dot.gov/freight/FPD/index.asp Related Activities • Freight Policy Directive, Regional Freight Profile, Freight Needs and Defi- ciencies, Freight Analysis in Corridor Plans/Studies, Freight Project Iden- tification, Data and Analysis Tools, Outreach and Partnerships, Training and Education. Key activity: Develop and integrate a freight element into the LRP. Step 1. Develop a regional freight policy (see the Developing a Freight Policy Directive section in this module). One of the first actions in the development or update of an LRP focuses on the defining regional goals and objectives. These provide the overall guidance and direction of the LRP. It is critical to address freight as part of this process. Step 2. Summarize and describe the regional freight system (see the Advanced Approach subsection of the Developing a Regional Freight Profile section in this module). To plan for a system, staff must have an overall understanding of what it encompasses. Freight cuts across all modes and has its own operating characteristics. The freight profile can be used to identify needs or bottlenecks and can also be used to educate the community. Step 3. Conduct outreach to regional freight stakeholders to collect information on oper- ations and needs (see the Advanced Approach subsection of the Outreach and Partnerships sec- tion in this module). In addition to the regional description, it is critical that the users of the system be given an opportunity to identify the strengths and weaknesses. Step 4. Develop a freight needs and deficiencies statement (see the Identifying Freight Needs and Deficiencies section in this module). Once the regional profile has been developed and the community’s partners (public and private) have provided input, it is necessary to develop a list of specific needs and deficiencies to stimulate the development of improvement projects. 3-20 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas

Integrating Freight into MPO Activities 3-21 Syracuse Metropolitan Transportation Council (SMTC)—Developing a Freight LRP Element The SMTC provides a good example of an MPO that has developed a freight- specific element in its LRP. In fact, the MPO has developed this element through the conduct of ongoing freight-specific initiatives, including truck route studies, rail corridor inventories, grade-crossing studies, and traffic studies, to develop a comprehensive freight LRP element. Figure 3.1 illustrates the region’s freight transportation network as identified by SMTC. Freight planning has been an ongoing part of the MPO’s planning activities since 1993 when the scope of the MPO’s planning program was expanded to include rail and truck issues. An intermodal planner position also was created and filled at that time to address this area. The position focuses on a range of passenger and freight intermodal issues. This position serves as the lead for MPO freight activities with 33 percent of available time allocated to freight. Other technical staff pro- vides project-specific support. In addition, SMTC organized the Syracuse Intermodal Roundtable (1994–1998) composed of shippers, manufacturers, wholesalers, trucking companies and rail service providers. This roundtable provided a forum for sharing information and addressing freight issues. It also participated in the Transportation Club of Central New York (an independent association of shippers from Central New York State focused on freight issues in a larger geographic territory than the MPO (mid 1990s). A key factor that has helped the MPO address freight issues is the estab- lishment and ongoing maintenance of contacts with the private sector (trans- portation providers such as CSXT, short-line railroads, trucking companies, shippers, and manufacturers) and with the New York State DOT (NYSDOT). SMTC has conducted several freight-specific initiatives and often has one or more manageable freight initiatives underway at any given time. These initiatives have focused on truck and rail issues in the region. These include the following: a truck route study for the City of Syracuse (2000); the Central New York Rail Corridor Inventory (1996 and 2003); a highway-rail grade crossing inventory (2001); the Taft Road-Northern Boulevard Study (multimodal 2001); the Skaneateles Traffic Study (multimodal with a truck routing component, 2000); the I-481 Corridor Study (multimodal 2004); and continuing examination of access and operational issues of the CSX intermodal terminal in Syracuse. The last is an outgrowth of the 1997 Conrail/CSX Intermodal Terminal Access Study. The MPO uses the Reebie Associates commodity flow data purchased by the state DOT. The challenge with these data is that they do not fully address the issues encountered at the local level. The nature of the dataset is that it is better suited for statewide and interregional freight movements. The MPO supplements the Reebie data with local data. SMTC also has participated in statewide MPO staff training on how to use state/regional freight data provided by Reebie Associates. The NYSDOT provides ongoing technical support on a variety of freight, rail, and project programming issues. The MPO staff generally works through the regional NYSDOT office. http://web.smtcmpo.org/extranet/smtc/reports/LRTP_update_2004/ch04.pdf

3-22 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas Source: http://web.smtcmpo.org/extranet/smtc/reports/LRTP_update_2004/ch04.pdf. Figure 3.1. Illustration of the freight network developed by SMTC. Step 5. Identify areas where more research or data are needed. The work completed in these steps will provide a full range of available data and analyses. For MPOs that are new to freight planning, this may raise additional questions. Ongoing freight program development will rely on an evolution of (a) expertise and (b) data and process. Step 6. Develop freight-specific improvement projects (see the Identifying Freight Projects section in this module). Building on the needs and deficiencies statement, staff should develop projects to mediate the highest priority freight bottlenecks. Step 7. Prepare summary of Steps 1 through 6 as the freight element for the LRP. Based on these steps, staff can develop a summary that provides a snapshot of the regional freight system, its conditions (needs and deficiencies), and potential improvement projects. These should then feed into the project ranking and prioritization process of the overall LRP update.

Common Issues and Potential Solutions There are several issues or challenges that make it difficult to develop a freight LRP element. In part, it is so difficult because it requires MPO staff to conduct several new activities and to inte- grate those activities into established transportation program processes. Other challenges include data availability, freight expertise, partner participation, and political opposition. The following summarizes the key challenges and offers potential solutions: Common Issue Potential Solution Difficulty integrating with other freight planning activities. This activity requires significant integration with multiple activities. This complicates the process, because it cannot simply reflect a stand alone freight initiative. Lack of freight data. Although many of the activities build on established data sources, many of the required analyses rely on new or enhanced data, some of which is considered proprietary by private sector partners. This can result in costly data collection activities. Difficulty including freight within an estab- lished planning process. An established LRP process already exists within MPOs. Breaking into this process to create a new discipline can be difficult to accomplish institutionally. Lack of freight expertise. Many of the activities defined represent a new area of planning for MPO staff. The ability of staff to take advantage of training opportunities and personal initiative to learn a new discipline are necessary for the freight program to be successful. Integrating Freight into MPO Activities 3-23 Designate a Freight POC. A freight technical lead should be designated within the MPO. This POC can act as the liaison between the MPO’s various trans- portation initiatives and between the MPO and other agencies and stakeholders, ensuring that freight issues are addressed within multiple MPO activities. As part of the effort to expand SMTC’s transportation pro- gram to include rail and truck issues, an intermodal planner position was created and charged with addressing passenger and freight intermodal issues, with support from other technical staff provided as necessary. As a result of this change, SMTC has under- taken several freight-specific initiatives and strives to remain active in freight planning each year. Investigate freight data sources. There are a number of publicly available freight data sources and data techniques that can be useful to support metropolitan freight planning efforts. SMTC effectively used a round- table composed of key freight stakeholders to help define regional freight issues as well as enhance dissemi- nation of information to the private sector. In addition, SMTC uses commodity flow data provided by the state, and staff took advantage of a statewide MPO training initiative designed to teach staff how to use the dataset. Available data sources are provided in Module 5. Develop champions and advocates for freight and freight planning. The ability to create new or modified processes and gain the support of the transportation community are in part based on the emergence of a freight champion. Articulating the positive benefits of freight can help create advocacy for freight planning and build support for mainstreaming freight within an existing planning process. Investigate training and education opportunities. There are a number of training and education oppor- tunities available to MPO staff to enhance under- standing of freight, its common issues and concerns, and how it can be more effectively integrated within a transportation planning process. In addition to FHWA’s resources, SMTC participated in a statewide MPO training program on the use of the regional and state level TRANSEARCH data that had been pur- chased and made available by NYS DOT. The regional DOT office also provides ongoing technical support. In addition, SMTC draws upon the experiences of other MPOs, such as the Buffalo MPO, which man- ages an international freight gateway.

Lack of partner participation. Convincing private industry representatives to play an active role in the development of a transportation program can be complicated by the planning horizon of MPOs. It is a challenge to engage the private sector in a planning process that looks out 20 years or more. Identifying Freight Projects Overview The development of a freight program relies on a variety of factors. The policy and planning activities allow MPO staff to define the system, its characteristics, and its needs. However, if it stops there, it remains a static snapshot with no improvement element. Converting the needs and deficiencies into actual improvement projects that can be evaluated, prioritized, funded, and implemented helps a plan evolve into a program. The freight project identification process is the first programming element addressed by the Guidebook. Freight project identification refers to the activities associated with identifying projects that address current or anticipated deficiencies between the existing freight transportation system capabilities and existing or anticipated needs. Although many MPOs have not historically invested in nonroadway freight projects, it is important to include the needs of all modes in the project identification because policies relating to investment decisions are being revisited by many states and MPOs. The majority of roadway projects have some impact on an area’s freight and logistics system (ranging from a large impact such as a major bypass proposal to a small impact such as the sim- ple retiming of traffic signals). As such, when asked if freight is considered as part of the trans- portation program, many MPOs refer to the overall benefit of roadway improvements. This can complicate the process of identifying freight-specific improvement projects. Optimally, project identification activities should result in the identification of solutions for addressing system defi- ciencies that meet the region’s macro-level goals and objectives. Basic versus Advanced Approach It is difficult to distinguish between basic and advanced approaches to freight project identifi- cation. In part it is tied to the level of effort undertaken in the areas of regional freight profile and freight needs and deficiencies. These two areas provide much of the data used to identify and develop specific projects. The basic approach focuses on evaluating existing projects identified and developed as part of traditional transportation planning and programming activities to identify those that would create the most significant benefit to freight operations. This process works to identify and promote projects that would most directly impact freight operations. For example, the development of a divided through lane on an expressway traversing a downtown area would serve truck traffic passing through the region more so than a landscaping project in a residential area. The advanced approach focuses on the creation and implementation of a process to identify freight-specific projects to integrate into the overall transportation program. For example, proj- ects would be identified that specifically address an identified freight bottleneck or need. Improv- ing an interchange between a key intermodal connector and a major roadway would improve access to the neighboring freight facility (port, rail yard, airport, etc.). 3-24 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas Develop outreach strategies. There are a number of strategies that can be employed to more fully engage the private sector freight community. SMTC has established and maintains an extensive list of freight contacts, including a variety of private sector represen- tatives, sister agencies throughout New York State, and the NYS DOT. The Syracuse Intermodal Roundtable was created and maintained for a 5-year period to take advantage of industry partner knowledge. SMTC cur- rently maintains the relationships developed through the Roundtable and conducts outreach on an as needed basis.

Key Activities The identification of freight-specific projects relies on MPO staff having an understanding of current freight needs. The objective of this activity is to begin to define potential projects that will improve or alleviate existing bottlenecks within the freight system. To effectively undertake this activity, staff must have access to infrastructure and operations data, as well as input from regional partners. LOS information, high-accident locations, missing or inadequate intermodal connectors are all factors that feed into this process. MPOs already have a process in place for the development or generation of project concepts. Typically, this process provides opportunities to various agencies and local partners (i.e., MPO staff, industry, the general public) to recommend project concepts for consideration. As staff members work to define freight-specific projects, it is important that they work within or inte- grate with the established transportation planning process. This will help ensure that potential freight improvement projects meet the requirements and expectations of the transportation planning and programming activities, thus helping ensure freight projects receive the same level of consideration as nonfreight projects in the pipeline. Basic Approach Activity • Identifying Freight Projects—Basic Activity Type • Planning and Programming Level of Effort • Low Technical Complexity • Low Data/Analytical Tool Needs • Low. Relies on established list of overall transportation projects and avail- able freight data. Outreach/Partnership Needs • Low. Requires limited outreach to a small number of private partners to validate projects identified as beneficial to freight. Training/Education Needs • Low. Requires staff to apply basic freight knowledge to project identifica- tion activities; should explore resources available from FHWA. • http://ops.fhwa.dot.gov/freight/FPD/index.asp Related Activities • Builds on existing transportation program elements and freight work completed to date, such as Regional Freight Profile, Freight Needs and Deficiencies, and Developing a Freight LRP Element. Key Activity: Identify and promote existing transportation projects that best accommodate and address freight needs. Step 1. Review projects identified by the overall transportation program activities. Exist- ing project concepts will be used to identify those that best serve freight operations. These proj- ects likely will consist of a variety of roadway projects designed to improve regional mobility and access, as well as improve safety. Step 2. Conduct interviews with a small number of freight stakeholders. Once a list of potential freight projects have been identified, MPO staff should reach out to key freight stake- holders to build consensus and develop a better idea of project priorities. In addition, the part- ners may be able to modify the project concepts or suggest alternate ideas that can serve as other potential projects. Step 3. Develop a list of freight sensitive projects. Based on Steps 1 and 2, MPO staff should develop and document an official list of projects proposed to best serve the region’s freight needs. It is anticipated that this list and methodology would be expanded on and improved as part of Integrating Freight into MPO Activities 3-25

subsequent freight planning and programming activities. This list also can be an effective out- reach tool to the private sector freight industry, helping potential stakeholders understand what the MPO already is doing to improve freight movements. Advanced Approach Activity • Identifying Freight Projects—Advanced Activity Type • Planning and Programming Level of Effort • High Technical Complexity • High Data/Analytical Tool Needs • High. Relies on data and analyses provided by related activities; signifi- cant outreach to private partners through interviews, focus groups, and formation of freight technical advisory committee. Outreach/Partnership Needs • High. Requires significant outreach to private partners through inter- views, focus groups, general public, and a freight technical advisory committee. Training/Education Needs • Moderate. Requires staff to apply more advanced freight knowledge to multiple program areas; should explore resources and training available from FHWA and NHI. • http://ops.fhwa.dot.gov/freight/FPD/index.asp Related Activities • Regional Freight Profile, Freight Needs and Deficiencies, LRP Freight Element. Key Activity: Identify and describe freight-specific projects. Step 1. Review the freight needs and deficiencies statement. The advanced approach relies on the existence of a regional freight profile and subsequent freight needs and deficiencies statement. To identify and develop freight projects, MPO staff should have access to signifi- cant data and resources that describe current limitations and highlight key industry-specified performance indicators. If this material is not available, staff is encouraged to first complete these two activities. This approach is not recommended for MPOs that have not completed the earlier steps. Step 2. Identify potential projects based on existing bottlenecks. The needs and defi- ciencies statement should provide staff with detailed data on existing bottlenecks and key pri- orities based on regional supply chain management practices. Based on this review, staff should identify key bottlenecks and define potential improvement projects. As part of the effort, staff should review existing projects to ascertain if there are any plans already in place to improve the problem. Step 3. Conduct outreach to private stakeholders to validate potential projects. Once staff has developed a list of potential projects, private stakeholders should validate them. This can be accomplished through interviews or focus groups. The intent is to build support for the projects (identify possible project champions) and provide an opportunity for refinements to existing concepts and the identification of additional concepts. Step 4. Refine and select key freight project concepts. Based on the results of the outreach, a final list of project concepts should be developed. This list should represent the best informa- tion available from both qualitative and quantitative sources. Step 5. Define preliminary project descriptions. More detailed descriptions of the project concepts should be developed to provide background information and development consider- ations. This will facilitate staff’s ability to build support for the projects. 3-26 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas

Step 6. Review detailed project descriptions with private partners. To ensure that the selected projects and their descriptions are accurate and meet the needs of existing supply chain management practices, MPO staff should conduct follow-up outreach activities with key private partners. These activities should focus on those partners that will be directly impacted by proposed projects. This can be accomplished through one-on-one meetings, focus groups, or both. Step 7. Integrate final project list into overall transportation program activities. Once staff has developed and described the list of freight projects, the projects should be integrated into the overall list within the defined program processes, which will feed the LRP and TIP processes. Common Issues and Potential Solutions The development of a list of freight-specific projects is limited by data, staff expertise, and dependence on other activities in the planning and programming process. The following sum- marizes the key challenges and offers potential solutions: Integrating Freight into MPO Activities 3-27 Polk Transportation Planning Organization (TPO)—Identifying Freight Projects The Polk TPO is the MPO for Polk County in central Florida. One of the Polk TPO’s biggest success stories is the West Memorial (U.S. 92) Interchange on I-4 in the northwestern part of Lakeland. This full movement interchange will significantly improve truck travel patterns by providing direct eastbound and westbound access to I-4 for trucks operating to and from Lakeland’s large distribution facilities (groceries, furniture, automotive parts, etc.). Currently, trucks must use surface roads through the city of Lakeland to reach access ramps for I-4. This project, championed by many local stakeholders, successfully maneuvered the transportation planning process. It was included in the 2025 LRTP Update and subsequently programmed in the TIP. The interchange opened to traffic in late 2005. The successful completion of this project was the result of a focused effort, involving multiple parties, that would not have resulted from a typical planning process (i.e., Florida DOT [FDOT] models did not initially justify the major expense of the project). Shippers and carriers using the industrial area in northwest Lakeland, frustrated by poor access to I-4, communicated the need for the interchange to the Lakeland and Central Florida Economic Development Councils (EDCs). The communication of this need was facilitated by a longstanding rela- tionship between the companies and the EDCs. The importance of the improve- ments was then relayed to the Polk TPO. With the need for an improved interchange documented, the Polk TPO worked with FDOT to come up with an affordable and fully functional solution to the problem. The result was a full movement interchange design that could be built entirely within existing right of way and at a lower cost than an earlier design. With support from the freight community, the mayor of Lakeland, the TPO Board, the local community, and backing from the FDOT district office, the revised interchange was programmed in the MPO’s TIP.

Common Issue Potential Solution Lack of freight expertise. Although MPOs go through a similar process with every plan and program update to develop the LRP and TIP, many may be challenged by the identification of transportation projects from the freight perspective. This could especially be true for nonroadway projects. Lack of freight data. This activity relies heavily on an established freight profile and a needs and deficiencies statement, which provide a variety of data sources. Freight data have historically been lacking in many regions and will continue to be until staff has integrated it into the ongoing data collection and manage- ment program. Dependence on other activities. Freight-specific projects are identified and developed from the regional freight profile, the needs and deficiencies statement, and public outreach activities. Without these activities and resources, the process of iden- tifying projects is constrained. Addressing Freight in Corridor Plans and Studies Overview Corridor plans and studies are one of the key activities undertaken by MPOs and state DOTs. These initiatives drive investment decisions that improve and enhance regional mobility. A region’s economic competitiveness is directly related to freight mobility. Therefore, it is critical that freight considerations be included in the analyses. These types of initiatives typically look at a variety of alternatives that evaluate the available options, such as congestion management strategies, use of ITS, and capital improvements. Historically, studies of this type have focused on roadway corridors. There are different types of corridor projects. For example, the I-95 Cor- ridor Coalition, which runs from Maine to Florida, represents a multistate initiative to improve operations. Other, more localized corridors better reflect the type of projects with which an MPO would become involved. These often represent major corridors serving an urbanized area. The Atlantic Commerce Corridor in southeast Florida is an example of a corridor study designed specifically to look at freight transportation needs across a variety of modes. This proj- ect involved three MPOs, two DOT district offices, and several private partners representing industry concerns. The study identified more than 6 billion dollars worth of project needs affect- ing a variety of modes and facilities, including three deep water seaports, three international air- ports, two freight railroads, and the roadway system. Completion of this resulted in the designation of the I-95 corridor along the entire eastern coast of Florida as a corridor of national significance, opening the door to a wider range of funding and investment opportunities. 3-28 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas Allow the private sector freight community to submit needs and projects for consideration. The private sector freight community can be an important source of information related to needs and deficiencies and potential freight improvement projects, because they are the primary users of the system and understand its strengths and limitations. In the case of the Polk TPO, the private sector freight community was allowed to submit projects directly or through the EDC, for consideration. This resulted in the identification and eventual programming of a significant freight improve- ment project that normally would not have been completed. MPOs that have difficulty identifying potential freight improvements may wish to consider such a strategy. Develop a regional freight profile. The completion of a regional profile can provide an MPO with a better understanding of the freight system in a region. The data and information collection activities conducted as part of a regional freight profile development can directly feed into the identification of needs and deficiencies. Designate a Freight POC. A freight technical lead should be designated within the MPO. This POC can act as the liaison between the MPO’s various trans- portation initiatives and between the MPO and other agencies and stakeholders, ensuring that freight issues are addressed within multiple MPO activities.

Many other regions have conducted freight corridor studies, as well. Southern California, for instance, has conducted several studies of how dedicated truck lanes along key roadway corri- dors could reduce congestion and improve mobility for trucks serving key freight generators, such as the Ports of Los Angeles and Long Beach, as well as reduce truck and auto conflicts in the region. Other truck-lane feasibility studies have been conducted along key freight corridors in the area. While most small- and medium-sized MPOs will not undertake such comprehensive truck-lane studies, many already conduct or are involved in significant corridor studies. It is important to provide guidance on how to address freight issues within these efforts. The approach recommended for small- and medium-sized MPOs focuses on expanding tra- ditional corridor studies to better reflect the needs of freight movements. This includes truck needs to move within a corridor and on intermodal connectors that provide access to major load generators, such as seaports, rail intermodal yards, air cargo operations, and key industrial areas. Basic versus Advanced Approach There are a variety of ways to integrate freight into corridor studies and plans. In part, how basic or advanced these activities are depends on the type of project. The basic approach focuses on integrating freight into existing transportation projects. This includes defining freight as one of the basic considerations to be included in the alternatives analysis. For example, at the basic level, a roadway corridor study can be enhanced to include private industry in the outreach and data collection to document the needs of industry. The advanced approach expands on the basic approach by more formally integrating freight into the study or plan. It includes the collection and analysis of freight-specific data as part of the alternatives analysis, including the development of freight-specific alternatives, as appropriate. For example, freight-specific alternatives can be developed to specifically address interchanges, access points, capacity, roadway geometrics, and other bottlenecks from the perspective of truck operations. In addition, it could include the incorporation of multiple modes. For example, if there is a rail corridor or other modal linkages within close proximity, the analysis could be expanded to include intermodal connection needs as well as modal diversion considerations. Key Activities Incorporating freight into corridor plan or study analyses is important to the overall devel- opment of a successful freight transportation program. Many MPOs and state DOTs conduct corridor studies to address regional mobility issues. These typically represent significant invest- ments in the transportation system—investments that benefit all types of movements (intra- regional, interregional, and through trips). The key activities suggested to successfully integrate freight needs focus on incorporating freight as one of many considerations evaluated as part of the overall project. This can be accomplished by integrating freight-specific elements into exist- ing alternatives or by promoting an alternative that looks specifically at improvements that would improve freight operations. The following activities address these approaches. Basic Approach Activity • Addressing Freight in Corridor Plans and Studies—Basic Activity Type • Planning Level of Effort • Low Technical Complexity • Low Data/Analytical Tool Needs • Low. Requires limited data collection and outreach to private partners through existing committees to provide basic operational information and needs identification. Integrating Freight into MPO Activities 3-29

Outreach/Partnership Needs • Low. Requires inclusion of private partners in general outreach activities. Existing advisory committees can provide valuable input. Training/Education Needs • Low. Requires staff to apply basic freight knowledge to existing corridor projects; should explore resources available from FHWA. • http://ops.fhwa.dot.gov/freight/FPD/index.asp Related Activities • Regional Freight Profile, Freight Needs and Deficiencies, Freight Project Identification. Key Activity: Integrate freight considerations into the corridor study or plan process. Step 1. Define freight as one of the corridor evaluation areas within the project scope. Early in the process as part of the project scope, regional freight mobility needs should be called out as one of the objectives. This will ensure that the process incorporates freight from inception. Step 2. Identify and work with private sector representatives to document key issues. As part of the analysis, outreach should be conducted to build public support for the selected alter- native. Freight stakeholders should be included in this process. Existing advisory committees should be used, if available. Step 3. Integrate freight issues into the potential project solutions. Although the basic approach does not call for the creation of freight-specific alternatives, it does support the inclusion of freight as one of the evaluation criteria in determining the best alternative for the corridor. Advanced Approach Activity • Addressing Freight in Corridor Plans and Studies—Advanced Activity Type • Planning Level of Effort • High Technical Complexity • High Data/Analytical Tool Needs • High. Requires collection of freight-specific data to support specific oper- ational analyses and travel demand model evaluations; conduct significant outreach with impacted private partners through interviews, focus groups, general public, and formation of a freight technical advisory committee. Outreach/Partnership Needs • High. Requires involvement of private partners in all the planned out- reach activities; conduct of interviews and focus groups; and engagement of the freight technical advisory committee. Training/Education Needs • Moderate. Requires staff to apply knowledge of freight data to existing corridor projects in coordination with significant outreach activities; should explore resources and training available from FHWA and NHI. • http://ops.fhwa.dot.gov/freight/FPD/index.asp Related Activities • Regional Freight Profile, Freight Needs and Deficiencies, Freight Project Identification. Key activity: Develop freight-specific alternatives within a corridor study or plan. Step 1. Define freight as one of the corridor evaluation areas. As the scope is being devel- oped for the corridor study or plan, it is critical that freight be highlighted as one of the key fac- tors in the creation and evaluation of alternatives. Based on the corridor, this step should include freight-specific alternative(s), as appropriate. Step 2. Identify and work with private sector representatives to document key issues and alternative characteristics. As part of the analysis, outreach will be conducted to build public support for the selected alternative. Freight stakeholders should be included in this process to provide an opportunity for system users to contribute to potential solutions. 3-30 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas

Step 3. Collect and evaluate freight-specific data. Data drive the planning process. To inte- grate freight considerations into a corridor study, it is necessary to have adequate data. Freight data should be collected to support operational analyses specific to the corridor’s characteristics and study scope. Truck counts are an example of freight-specific data required for corridor stud- ies. In addition, nearby freight load centers, such as an intermodal terminal, port facility, or air- port would contribute significantly to the corridor’s operation and staff should work to identify data sources describing the operations of these kinds of facilities. Step 4. Develop freight-specific improvement components or alternatives. Based on an evaluation of operational conditions, specific improvement options should be developed that integrate with and promote overall corridor efficiency. Key access points (intermodal connec- tors) and truck only lanes are a few options to consider. Step 5. Conduct outreach to private stakeholders to validate potential improvement options. Once staff has developed a list of specific improvement options, private stakeholders should validate them. This can be accomplished through interviews, focus groups, or both. The intent is to build support for the corridor study and provide an opportunity for refinements to existing concepts and the identification of additional concepts Step 6. Integrate freight into the corridor evaluation process. The freight-specific alterna- tives and specific improvements should be part of the overall evaluation of alternatives. These steps provide the base data and development of improvements necessary to support this activity. Common Issues and Potential Solutions For many MPOs and state DOTs, the ability to integrate freight into corridor planning holds the same challenges associated with overall freight policy, planning, and programming activities. Many MPO staff members do not have training in freight and goods movement issues. In addition, they often lack necessary data to easily integrate freight considerations into existing processes. The following summarizes the key challenges and offers potential solutions. Common Issue Potential Solution Lack of freight expertise. Many of the activities defined represent a new area of planning for MPO staff. The ability of staff to take advantage of training opportunities and personal initiative to learn a new discipline are necessary for the freight program to be successful. Lack of freight data. Aside from standard vehicle classification counts, many MPOs do not have access to freight-specific data to support corridor studies. In addition, some types of freight data differ from traditional transportation data, making integration more difficult. Lack of project champion and political oppo- sition. Corridor improvement projects often address significant transportation investments to better manage regional mobility for all trans- portation system users. Building support for a freight-specific enhancement is often limited due to competing agendas. In addition, many leaders and their constituents are not well versed in the benefits of freight transportation. Integrating Freight into MPO Activities 3-31 Investigate training and education opportunities. There are a number of training and education oppor- tunities available to MPO staff to enhance under- standing of freight, its common issues and concerns, and how it can be more effectively integrated within a transportation planning process. Investigate freight data sources. There are a number of publicly available freight data sources and data techniques that can be useful to metropolitan freight planning efforts. See the Data and Analytical Tools section of this module for more guidance. In addition, Module 5 includes a list of freight data resources. Develop champions and advocates for freight and freight planning. Few local decision-makers and general public members understand the link between efficient freight movements and quality of life. Artic- ulating the positive benefits of freight can help create advocacy for freight planning.

Developing Freight Project Evaluation Criteria Overview Project evaluation criteria dramatically impact the direction and content of an MPO’s trans- portation program. They ultimately are responsible for the selection and prioritization of spe- cific improvement projects with both LRTPs and TIPs. As a result, for freight to become an integrated component in a region’s transportation program, it must be recognized and acknowl- edged through the project evaluation criteria. The most effective mechanism for ensuring that freight considerations are part of the process is to modify and enhance the existing processes used by MPOs to evaluate and rank transportation improvement projects. The specific categories used by MPOs vary; however, they typically address the following categories: • Safety and security, • Mobility and system performance, • Economic development and land use, • Growth management, • Intermodal and multimodalism, • Environmental impact, and • Quality of life. Although these categories address the overall project impacts on a region, it is also important that the evaluation criteria identify impacts on or value to key regional industries. In addition to their impacts on these categories, freight projects should also be driven by their ability to meet the needs of regional freight operators. Examples include assessing the impact or value to businesses located in an industrial park of a new Interstate interchange that would provide direct access to the highway or evaluating the benefits to industry of improved travel time, reduced truck traffic, or improved reliability. These and other types of freight impacts should be identified and addressed by project evaluation criteria. Most MPOs have at least two important processes; one to support development of their LRP, and another to support development of their TIP. Most MPOs evaluate their projects within cat- egories, such as by mode (bike/pedestrian, roadway, transit, and freight) or by impact category (mobility, safety, economic development). The Guidebook encourages users to work within the confines of their established program processes to identify opportunities for integrating freight- specific project considerations. Basic versus Advanced Approach The development of freight project evaluation criteria can be accomplished through a variety of activities. The basic approach focuses on simple modifications to the existing project evalua- tion criteria to better reflect or accommodate freight projects. The objective of this approach is to ensure that freight projects are included in the evaluation process by inserting or changing language to the existing process. The advanced approach consists of very similar steps, except it calls for the development and integration of freight-specific project evaluation criteria. Instead of modifying existing language to recognize freight, new language will be developed to specifi- cally address freight projects, as well as ensure that transportation projects in general recognize the operational and design requirements of freight movements. Key Activities Development of freight project evaluation criteria represents a critical step in the program- ming process. Once the projects have been identified there needs to be a mechanism in place to 3-32 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas

rank and prioritize them. Most likely, these projects will be competing among themselves, as well as with nonfreight projects. An MPO must make a decision as to how these processes should be accomplished. Within the realm of freight-specific projects, a variety of factors can be measured, including improvements in mobility, reduction in congestion, improved access, economic impacts, and safety and security enhancements. Many of these also will translate into the over- all project evaluation process; however, they will require a modified set of data. The following approaches focus on the key steps required to undertake this activity. They include activities like language modifications (which will incorporate freight-specific impacts into existing evaluations) and the development of specific freight measures (which will require new data and analyses). Basic Approach Activity • Developing Freight Project Evaluation Criteria—Basic Activity Type • Planning and Programming Level of Effort • Moderate Technical Complexity • Moderate Data/Analytical Tool Needs • Moderate. Requires identification and collection of new data require- ments; refinement to existing evaluation criteria. Outreach/Partnership Needs • Low. Requires limited outreach to private partners to verify evaluation criteria. Training/Education Needs • Moderate. Requires staff to apply freight knowledge to short- and LRP development activities; should explore resources and training available from FHWA and NHI. • http://ops.fhwa.dot.gov/freight/FPD/index.asp Related Activities • Freight Project Identification, LRP Freight Element, TIP Development. Key activity: Integrate freight considerations into established evaluation criteria processes. Step 1. Review and evaluate existing transportation evaluation criteria. MPOs have been evaluating the impacts of potential projects for years. The most fundamental approach available for evaluating freight projects is to build on or modify these processes. The first step for MPO staff is to review these processes and evaluate the degree to which they already may incorporate freight considerations. Step 2. Identify potential language modifications to better integrate or account for freight projects. Based on the review of existing evaluation processes, MPO staff should identify specific language modifications. For example, criteria that look at annual average daily traffic (AADT) could be expanded to include reference to annual average daily truck traffic (AADTT). Step 3. Identify new data requirements to evaluate freight projects. Once the language modifications have been developed, it is critical that the necessary data be collected to support the changes. In the Step 2 example, if AADT is expanded to include AADTT, vehicle classifica- tions will be required. Step 4. Refine evaluation process. The recommended language changes and new data requirements should be integrated into the MPO’s procedures. This will likely require close coor- dination and cooperation with the staff responsible for overall project evaluation. Staff members should be included in all these steps to help build consensus early on in this activity. Step 5. Implement process as part of next update. Steps 1 through 4 should provide staff with a modified, freight sensitive project evaluation process. Implementation should occur as part of the next regularly scheduled update. Integrating Freight into MPO Activities 3-33

Advanced Approach Activity • Developing Freight Project Evaluation Criteria—Advanced Activity Type • Planning and Programming Level of Effort • High Technical Complexity • High Data/Analytical Tool Needs • High. Requires identification and collection of new data requirements; refinement to existing and development of new evaluation criteria. Outreach/Partnership Needs • Low. Requires limited outreach to private partners to verify evaluation criteria. Training/Education Needs • High. Requires staff to apply freight knowledge to short- and LRP devel- opment activities; should explore resources and training available from FHWA and NHI. • http://ops.fhwa.dot.gov/freight/FPD/index.asp Related Activities • Freight Project Identification, LRP Freight Element, TIP Development. Key activity: Develop freight-specific project evaluation criteria and integrate them into established processes. Step 1. Review and evaluate existing transportation evaluation criteria. MPO staff should be familiar with the existing evaluation criteria and the associated process before embarking on the development of a new set of criteria. This is critical, because ultimately integration, coordi- nation, and cooperation will be necessary to achieve a balanced approach to project evaluation activities. Step 2. Review available freight data, analyses, and projects provided by other activities. To develop a comprehensive set of freight project evaluation criteria, it is critical that staff under- stand the system, its operation, the available data, and the types of projects being considered. The supply chain analyses completed as part of the regional freight profile should provide valuable input and insights into the priorities of the private partners. Step 3. Develop stand alone freight-specific evaluation criteria. Based on the material iden- tified and reviewed in Step 2, specific criteria should be developed. These criteria should address a full range of freight and infrastructure operations across all modes. Some of these will reflect existing measures from the freight perspective, while others will represent new criteria. These criteria should address (1) the direct impacts on private partner operations and (2) overall impacts on the region. Step 4. Identify new data requirements to evaluate freight projects. It is important to iden- tify criteria for which data are or can be available. As the criteria are being developed in Step 3, staff should be defining the data requirements necessary to effectively implement them. Step 5. Integrate freight evaluation criteria in the transportation project evaluation process. As with other transportation elements, freight criteria should be incorporated into the overall evaluation process. This could consist of a new freight component to the established process, or it could involve true integration. Staff should look to its specific programs for guidance on this decision. Step 6. Implement process as part of next update. Steps 1 through 5 should provide staff with a modified, freight sensitive project evaluation process. Implementation should occur as part of the next regularly scheduled update. 3-34 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas

Integrating Freight into MPO Activities 3-35 Toledo Metropolitan Council of Governments (TMACOG)—Developing Freight Project Evaluation Criteria TMACOG has developed a project solicitation and ranking process that begins to integrate freight into the project evaluation process by addressing the overall transportation program. As part of its TIP, TMACOG staff evaluates projects based on a variety of factors. These factors are primarily inclusive of freight project char- acteristics and are highlighted in three areas: economic development, multimodal, and system use and performance. The following table presents the specific elements and allocated points. TMACOG Project Solicitation and Ranking Process TIP Prioritization Factors Freight-Related Elements Measured Points Economic Development (10%) Quality of Life (10%) Multimodal (15%) Local Commitment (15%) System Use and Performance (50%) Source: Transportation Improvement Program (TIP), 2006–2009, March 2005, Public Review Draft, Prepared by Toledo Metropolitan Area Council of Governments. NA = Not applicable. Only factors that specifically addressed freight interests were called out in this example. Projects with 10 or more jobs (includes retail and service) Projects with 10 or more jobs (no retail and service) NA Projects which provide access to multimodal terminals: NA Percent Truck Traffic (For projects on a truck impact route add 2 points. Maximum number of points for this item is 5) Localized Multiple Jurisdictions Regional Impacts Localized Multiple Jurisdictions Regional Impacts NA Regional Scale Major Scale Minor Scale NA <5% 5 to 10% 10 to 15% 15 to 20% 20 to 25% >25% 2 4 6 6 8 10 NA 10 5 3 NA 0 1 2 3 4 5 Common Issues and Potential Solutions There are several common issues or challenges that MPOs will face in the development of freight project evaluation criteria. These challenges consist of data limitations, lack of specific freight projects to evaluate, the ability to evaluate impacts and benefits across modes, and local

political resistance to freight and goods movement initiatives. The following summarizes the key challenges and offers potential solutions: Common Issue Potential Solution Lack of freight projects. Many MPOs have not identified and developed freight-specific projects. Freight needs are typically addressed directly or indirectly as part of the overall transportation program. Without a process in place to identify and develop freight projects, it is not feasible to develop freight evaluation criteria. Limitations of freight data. The availability of freight data continues to be a major factor for MPO planning staff when conducting freight planning activities. As a result, the creation of freight evaluation criteria is restricted to those criteria for which data are available. Local political will. Many regions have a strong anti-freight political environment. This sentiment often restricts the ability of technical staff within MPOs to expand programs to include freight. Developing Freight Performance Measures Overview Performance measures have become an increasingly important component of transportation planning and programming activities. Investment decisions are being driven more and more by anticipated and proven results. This change forces agencies to invest in projects and programs that can be shown to benefit their impacted communities. Performance measures are used to evaluate both proposed projects and implemented program elements. The results provide addi- tional data and tools for ongoing program expansion and enhancements. Freight performance measures can serve various purposes in the freight planning process. It is beneficial to be able to use freight performance measures to evaluate how future conditions will affect system performance and how planned projects contribute to meeting regional goals and objectives. This type of evaluation is also especially useful for conducting alternatives evaluations in corridor studies. Performance measures that are tracked on a regular basis can provide early warning signs of problems that need to be addressed in planning for the future and help focus a freight planning program. Performance measures can be used to evaluate the relative benefits of different LRP options or they can be adapted for selection of freight projects for inclusion in a TIP. Basic versus Advanced Approach Approaches to developing and maintaining freight performance measure systems can be dis- tinguished based on the amount of data collection required and whether or not they involve fore- casting the measures for alternate future conditions. Ideally, MPOs will choose performance measures that are directly related to the goals and objectives of their freight program. However, 3-36 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas Allow the private sector freight community to submit needs and projects for consideration. The private sector freight community can be an important source of information related to needs and deficiencies and potential freight improvement projects, because they are the primary users of the system and understand its strengths and limitations. In some MPOs, the private sector freight community is allowed to submit projects directly for consideration. The private sector also can be an important resource when developing freight- specific evaluation criteria. Investigate freight data sources. There are a number of publicly available freight data sources and data techniques that can be useful in developing freight evaluation criteria. State DOTs, FHWA, and other agencies are potential sources of freight data. See the Data and Analytical Tools section of this module for more guidance. In addition, Module 5 includes a list of freight data resources. Develop champions and advocates for freight and freight planning. Few local decision-makers and general public members understand the link between efficient freight movements and quality of life. Artic- ulating the positive benefits of freight can help create advocacy for freight planning.

it may be difficult to identify sources of data that can be used to evaluate conditions related to all goals and objectives. To simplify the process and application, some MPOs simply identify easy to track indicator metrics that tell them something basic about what is happening in the freight system, for example, an indicator of growth or decline in traffic volumes, changes in the per- centage of trucks on high-volume facilities, or spreading of peak periods (which may reduce the amount of off-peak time in which trucks can operate). A more advanced approach incorporates travel demand model outputs. Some freight per- formance measures come directly from travel demand models. As a result, if freight traffic can be distinguished in these models, they can be used to forecast freight performance. Hours of recurrent delay for trucks (or on key truck routes), LOS, change in truck percent on key corri- dors, travel time between major freight origins and destinations are all examples of freight per- formance measures that can be estimated using a travel demand model that includes truck trip tables. This concept has been extended in the San Joaquin Valley Truck Model and the Freight Action STrategy (FAST) for Everett-Seattle-Tacoma Truck modeling tool using the results of a travel demand model with some readily available sketch planning tools. Key Activities For performance measures to be useful, they need to relate to specific goals and objectives, whether these are goals and objectives of an overall freight program or the purpose and need statement in a corridor study or plan. To the extent that these are general goals and objectives that are similar to those established for passenger transportation (e.g., mobility, safety, environ- mental health, etc.), the metrics may be the same as they are for passenger transportation but focused on the freight elements of the system. For example, performance measures for freight mobility may be hours of delay for trucks or on key truck routes; performance measures for freight safety may be accidents at rail grade crossings or accidents involving trucks. Some aspects of performance may be important to meet regional goals and objectives but either the data are not available to measure them or there are no useful metrics. Reliability is an aspect of system performance that freight stakeholders often cite as critical but it is an elusive aspect of per- formance from a measurement perspective. In some cases, as in Brownsville, TX, MPOs may choose to focus on one or two very simple metrics (e.g., amount of truck traffic moving through a border crossing or through the gates of a port or intermodal facility) as the primary indicator. If baseline con- ditions are established and system performance is viewed as satisfactory by stakeholders under these conditions, useful baseline measures may be established with which to compare future performance. Basic Approach Activity • Developing Freight Performance Measures—Basic (without Forecasting) Activity Type • Planning and Programming Level of Effort • Moderate Technical Complexity • Low to Moderate Data/Analytical Tool Needs • Moderate. Relies on data collected to support measures such as truck/ freight volumes on key facilities, travel times between major freight origin- destination points, number of accidents involving freight vehicles, etc. Outreach/Partnership Needs • Moderate. Requires outreach to private partners to solicit feedback on proposed freight performance measures. Training/Education Needs • Moderate. Requires staff to apply freight knowledge of multiple data intensive activities; should explore resources and training available from FHWA and NHI. • http://ops.fhwa.dot.gov/freight/FPD/index.asp Related Activities • Regional Freight Profile, Freight LRP Element, Data and Analysis Tools, Freight Project Evaluation Criteria. Integrating Freight into MPO Activities 3-37

Key Activity: Work with stakeholders to identify useful metrics related to goals and objec- tives, identify available data, and conduct evaluation. Step 1. Identify a priority or critical freight network, including all components. This will help focus the performance measurement on those aspects of the system that are of most con- cern to users. This information should be available through the regional freight profile. Step 2. Determine what types of data are available for these system elements from system operators. This may include data on traffic volumes, average speeds and travel times, accidents, and so forth. Note that some of the data may only be available through private system operators. This information also should be available through the regional freight profile. Step 3. Prepare an initial list of potential indicators for key goals and objectives of the freight program and match these with available data. Always make sure that the performance measures are related to key goals and objectives and the data are available. Step 4. Review the performance measures with stakeholders (preferably an ongoing FAC and agency staff). For any performance measures for which readily available measures do not exist, determine with freight stakeholders the potential for successfully collecting new data. Step 5. Conduct performance evaluations based on defined measures and data. Using the defined performance measures and available data, evaluate the freight transportation system. Advanced Approach Activity • Developing Freight Performance Measures—Advanced (with Forecasting) Activity Type • Planning and Programming Level of Effort • High Technical Complexity • High Data/Analytical Tool Needs • High. Requires evaluation of freight modeling tools with all system elements. Outreach/Partnership Needs • Moderate. Requires outreach to private partners to solicit feedback on proposed freight performance measures. Training/Education Needs • High. Requires staff to apply freight knowledge of multiple data intensive activities, including forecasting; should explore resources and training available from FHWA and NHI. • http://ops.fhwa.dot.gov/freight/FPD/index.asp Related Activities • Regional Freight Profile, Freight LRP Element, Data and Analysis Tools, Freight Project Evaluation Criteria. Key Activity: Develop forecasting tools that evaluate how performance measures change with changes in the system characteristics. Step 1. Identify a priority or critical freight network, including all components. This will help focus the performance measurement on those aspects of the system that are of most con- cern to users. This information should be available through the regional freight profile. Step 2. Determine what types of data are available for these system elements from system operators. This may include data on traffic volumes, average speeds and travel times, accidents, and so forth. Note that some of the data may only be available through private system operators. This information should be available through the regional freight profile. Step 3. Identify and review available travel demand models and data. Regional travel demand models provide roadway system data in the form of both input and output files. These data, along with the modeling process, can be used to evaluate the base and future performance of the roadway system. They can also address access to key load centers. 3-38 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas

Step 4. Prepare an initial list of potential indicators for key goals and objectives of the freight program and match these with available data. Based on a review of the available trans- portation system and model data, identify and document the potential freight performance measures. Always make sure that the performance measures are related to key goals and objec- tives and that data are available. Step 5. Review the performance measures with stakeholders (preferably an ongoing FAC and agency staff). Soliciting input from the impacted stakeholders is an important step. This activity validates the list based on the expertise of the system users. For any performance mea- sures for which available measures are not available, determine with freight stakeholders the potential for successfully collecting new data. Step 6. Conduct performance evaluations of base and future alternatives based on defined measures and data. Using the defined performance measures, available data, and models, MPO staff should evaluate the freight transportation system. This will require the programming of improve- ment projects into the travel demand model to measure the anticipated changes in performance. Integrating Freight into MPO Activities 3-39 East-West Gateway Coordinating Council (EWGCC)—Developing Freight Performance Measures EWGCC provides an example of an MPO that has developed effective performance measures for freight. EWGCC has developed performance indicators specific to the freight system in St. Louis that coincided with important goals shared by the MPO’s FAC. In addition, the number of indicators was manageable in size and could be measured with available or easily obtainable data. The refined list of indicators was divided into five summary categories, and the regional freight plan recommended their use in a regional TIP. The following is the list of indicators as presented in that draft 1998 regional freight plan. Connectivity/Congestion—Average speed on the St. Louis Region’s roadway network and truck counts at several key locations. Safety—Number of at-grade railroad crossings, number of overpasses that have vertical clearance restrictions, number of weight-restricted bridges or overpasses, intersections with inadequate turning radii for 53′ trailers, high-accident loca- tions, ramp geometry where sight distance to poor or sharp turns is required, and pavement life. Reliability—LOS below C. Intermodal—Tons of air freight departing, tons of cargo transported through the port, and number of intermodal lifts that occur yearly at the local intermodal facilities. Economic/Environmental—Value of freight moved from, to, and within the region, number of people employed in five major economic sectors in the region (e.g., trans- port and manufacturing), amount of warehouse space available in the region and current occupancy rate of the warehouse space, and number of projects and dollars expended. These performance measures represent a balance between the need for meaning- ful indicators that truly inform the process for programming improvements and the need for indicators that are easily measurable.

Common Issues and Potential Solutions Key challenges associated with the development and application of performance measures include definition of measurable impacts, staff expertise, availability of data and resources, and the availability and functionality of travel demand models. The following summarizes the key challenges and offers potential solutions. Common Issue Potential Solution Measurable impacts and data availability. One of the key obstacles faced by staff will be the ongoing ability to apply the performance mea- sures. Staff can identify a comprehensive list of performance measures, but if expertise and data are not available to apply them then the program will not succeed. Staff expertise. Performance measures have become an integrated component for many MPO and state transportation programs, however, freight-specific performance measures are still in their infancy. This will challenge staff members because they will have to develop freight expertise to develop an appropriate set of performance measures. Multimodal and intermodal trips. A typical MPO has not developed a transportation program that incorporates truck, rail, water, air, and pipeline commodity movements. The ability to calculate the performance of non- roadway movements will be a significant challenge for most MPOs. Identifying Innovative Funding and Financing Techniques Overview MPOs often commit a large portion of their budgets to the maintenance and preservation of their existing roadway systems. In addition, transit, bike, and pedestrian improvement projects compete for limited transportation funds. This competitive funding environment leaves few resources available to fund freight-specific improvement projects. While roadway-related freight improvement projects are usually eligible for funding under federal and state highway pro- grams, multimodal and intermodal projects must often be shoehorned into air-quality mitigation (e.g., congestion mitigation and air quality [CMAQ] improvement program) or safety programs (e.g., highway-rail grade-crossing separation programs). Rail improvements to private rail ter- minals and lines are usually not eligible for public support except indirectly through loan credit- support programs. Despite the link to economic development and jobs, many MPOs often find it difficult to justify spending money on nonroadway projects or projects that are perceived to inordinately benefit the private sector freight community. Those freight projects that have been successfully financed and implemented often took advantage of unique blends of funds from multiple sources and often involved complex public- 3-40 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas Dedicate yourself to data collection. MPOs must be mindful of their capacity for data collection in drafting the indicators. In addition, the process is dynamic. Over time, indicators must change to reflect improved understanding of issues and associated problems, especially as informed by the involvement of industry participants. In the case of the EWGCC, ease of data collection was an important criteria when selecting appropriate performance measures. Investigate training and education opportunities. There are a number of training and education oppor- tunities available to MPO staff to enhance under- standing of freight, its common issues and concerns, and how it can be more effectively integrated within a transportation planning process. Peer exchange programs are particularly useful for developing staff expertise in specific subject areas. See Module 5 for a list of training and education resources. Engage the private sector freight community. The private sector freight community can often provide the background and expertise to assist MPOs in evaluating the performance of nonroadway movements. In the case of EWGCC, the development of freight perfor- mance measures was conducted in cooperation with the region’s FAC, a group of public and private freight stakeholders.

private partnership (PPP) arrangements. These projects often require specialized finance skills not usually available within MPOs or local governments. MPOs typically have three basic tools for investing in freight improvements: 1. Grants from transportation programs. Grants give states and the federal government the best control over the use of funds. Funds can be targeted to specific projects that solve freight project needs. Highway freight bottlenecks can normally be funded with all the core federal- aid programs. In addition, the long-standing FHWA Section 130 Rail grade crossing program provides dedicated funding to improve safety at rail grade crossings. Also, the CMAQ improve- ment program, created in ISTEA, has benefited freight rail and marine intermodal projects where there is an air quality benefit and the new Truck Parking Facilities Grant program of SAFETEA-LU will assist states in improving rest areas for trucks along the NHS. 2. Loan and credit enhancement programs. These programs include the Rail Revitalization and Improvement Funding program (RRIF), Transportation Infrastructure Finance and Innova- tion Act (TIFIA) program, and State Infrastructure Banks (SIBs). – RRIF is a loan and credit enhancement program for freight rail. It is oriented to the needs of regional and short-line railroads. – TIFIA provides loans, loan guarantees, and lines of credit for large projects. The program is modeled after a loan provided for the Alameda Corridor Transportation Project, a truck and rail corridor project improving access to the ports of Los Angeles and Long Beach. To qualify for assistance under TIFIA, a project needs a source of revenue to cover debt service costs; the total project must be valued at more than $50 million ($15 million for ITS projects) or 50 percent of the state’s annual federal-aid highway apportionments, whichever is less; the federal TIFIA loan cannot exceed one-third of the total project cost; and the project’s senior debt obligations must receive an investment-grade rating from at least one of the major credit rating agencies. – SIBs can provide loans for highway and in some cases transit improvements. All states are eligible to develop SIBs. 3. Tax-expenditure financing programs. These programs include accelerated depreciation, tax- exempt bond financing, and tax-credit bond financing. A tax-exempt bond is an obligation issued by a state or local government where the interest received by the investor is not taxable for federal income tax purposes. Tax-credit bond financing is a new form of federally subsidized debt financing, where the investor receives a federal tax credit in lieu of interest payments on the bonds. From the borrower’s perspective, it provides a zero-interest-cost loan. These pro- grams can be used to provide targeted, income tax benefits for investments made to improve the efficiency or increase the capacity of the freight system. Two key financing programs include the Private Activity Bonds program, which allows the issuance of tax-exempt private activity bonds for highway and freight transfer facilities; and the Grant Anticipation Revenue Vehicle (GARVEE) Bonds program, which allows states to issue tax-exempt debt backed by future federal-aid highway revenues. A summary of potential funding opportunities for freight intermodal improvements is pro- vided in Module 5. Basic versus Advanced Approach There are a variety of ways to successfully fund freight projects. The most basic approach is to integrate freight elements into other high-ranking transportation projects. Initial efforts by MPO staff to fund freight projects should focus on short-term operational improvements, which can be funded through local maintenance and preservation funds and potential economies of scale by integrating freight-specific elements into existing transportation projects, which typically Integrating Freight into MPO Activities 3-41

consist of roadway projects. This will require coordination with the local agency responsible for maintenance, such as a county’s public works department. In addition, staff will need to coor- dinate with those responsible for LRTP and TIP development and implementation to include freight improvements as part of larger roadway and corridor projects. This will allow freight projects to benefit from existing funding sources. In many cases, the freight benefits are automatic. For example, developing barrier-separated through lanes on an expressway through a downtown area benefits all through traffic, including trucks. In other instances, freight can be inserted as a consideration. For example, a corridor study typically involves development of several alternatives. The needs of industry could be included in the design and operational parameters of one or more alternatives. As freight programs develop, evolve, and begin to identify and develop their own specific proj- ects, funding sources become more of a challenge, especially for nonroadway projects. In these instances, a more advanced approach is required to identify and secure funding. An advanced approach focuses on the identification and pursuit of freight-specific funding sources. There are a limited number of funding opportunities, many of which are anticipated to be strengthened by federal reauthorization. Others, such the CMAQ program, are limited to nonattainment areas and require competition with a full range of transportation projects. Advanced funding tech- niques will require a local champion within the MPO as well from the private sector for a given project. Many of the available sources require state and federal partners, such as the SIB and fed- eral aid programs. Federal earmarks, which are driven by the political process, are one such source to fund major freight projects. Key Activities The ability to successfully fund projects is a crucial part of the MPO planning and program- ming process. Existing programs have long invested public funds in the roadway and transit sys- tems, and more recently bike and pedestrian systems. However, with the exception of roadways, the majority of freight systems have been left to private industry to handle. Over the last few decades, public policy has begun to better address freight system needs. This has been motivated by continued growth and demand for overall transportation and the continued emphasis being placed on multimodal and intermodal systems. This change in policy has been challenged by the lack of new funding sources. There are very few dedicated funding mechanisms to support freight improvements. Those that do exist tend to focus on areas of conflict with passenger traffic, such as safety projects to mediate at-grade rail crossings, or economic assistance, such as new rail spurs to serve new or expanded industrial locations. While many states have developed funding programs targeted at specific freight improvements, such as short-line rail infrastructure and port-related improvements, funding for these programs can be limited and may not solve the most immediate freight mobility needs of an MPO. This section focuses on the approaches available to MPO staff to secure funding for freight-specific improvements. The first approach works within established funding programs, while the second expands on more advanced activities that secure funding for stand alone freight projects. Basic Approach Activity • Identifying Innovative Funding and Financing Techniques—Basic Activity Type • Programming Level of Effort • Moderate Technical Complexity • Moderate 3-42 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas

Data/Analytical Tool Needs • Moderate. Requires data collection and analysis to support the positive impact of proposed projects; outreach to private partners to build sup- port for specific projects. Outreach/Partnership Needs • High. Requires significant outreach to private partners to build support for projects; activities should consist of interviews, focus groups, and formal freight technical advisory committee meetings. Training/Education Needs • Moderate. Requires staff to combine freight knowledge and financing techniques; should explore resources and training available from FHWA and NHI. • http://ops.fhwa.dot.gov/freight/FPD/index.asp Related Activities • Freight Project Identification, LRP Freight Element, Freight Project Impact Assessment, Freight Project Evaluation Criteria. Key activities: Identify and fund short-term, “quick-fix” projects and integrate freight con- siderations into funded projects. Step 1. Identify short-term operational projects. One of the most basic mechanisms for advancing pro-freight projects is to deal with quick-fix projects using available maintenance funds. Examples of quick-fix projects include traffic signal re-timings, turning radii improve- ments, and even pothole repairs. These types of projects can be identified through outreach to private partners and a review of local operating bottlenecks identified by the regional freight pro- file and freight project identification activities. Step 2. Allocate maintenance and preservation funds. Once the projects have been identi- fied, MPO staff must work closely with the local public works department to solicit project sup- port and funding. This is a critical step, because MPOs need an implementation partner. Step 3. Identify longer-term capital improvement projects that could effectively address freight bottlenecks. Steps 1 and 2 build support for more immediate investments for freight projects. Once that has been accomplished it is important to identify proposed capital projects that could be modified to improve freight mobility. Step 4. Define specific opportunities or modifications to integrate freight elements into existing transportation projects. Once the projects have been developed, specific modifications should be developed. For example, new capacity added to an urban arterial could be reviewed to include geometric design considerations at key truck access points. Step 5. Coordinate with appropriate staff to promote the inclusion of freight considera- tions. MPO staff should work with individual project champions or leaders to incorporate freight improvement elements into the established project definitions. These freight considerations will take advantage of the traditional funding sources already in place for the overall project. Advanced Approach Activity • Identifying Innovative Funding and Financing Techniques—Advanced Activity Type • Programming Level of Effort • High Technical Complexity • High Data/Analytical Tool Needs • High. Requires data collection and analysis to support the positive impact of proposed projects; conduct outreach to private partners to build sup- port for specific projects. Outreach/Partnership Needs • High. Requires significant outreach to private partners to build support for projects; activities should consist of interviews, focus groups, and formal freight technical advisory committee meetings. Integrating Freight into MPO Activities 3-43

Training/Education Needs • Moderate. Requires staff to combine freight knowledge and financing techniques; should explore resources and training available from FHWA and NHI. • http://ops.fhwa.dot.gov/freight/FPD/index.asp Related Activities • Freight Project Identification, LRP Freight Element, Freight Project Impact Assessment, Freight Project Evaluation Criteria. Key activity: Develop funding process for key freight improvement projects. Step 1. Identify freight capital improvement projects. The regional freight profile and freight project identification activities will provide staff with a list of needs and project concepts. Based on these data sources, specific capital improvement projects should be selected for fund- ing consideration. Step 2. Identify project champions from public and private entities. Soliciting the support of private industry and public agencies is important in building support and funding for a spe- cific project. These champions should be responsible for building support among local decision- makers to ensure funding is made available. Step 3. Identify potential funding sources. There are a limited number of funding sources available for freight projects. There are the traditional funds available to MPOs which typically are available for roadway projects. CMAQ program funding can be used for nonattainment areas. Other sources to consider include federal aid grants, and public private partnerships. Staff should work with funding experts to fully explore the options. Step 4. Build local support for specific freight projects. MPO staff and project champions should work together to promote a defined freight project. This activity builds support and increases the likelihood that the project will be funded and advanced. Step 5. Pursue and compete for funds. Based on the successful identification of funding sources, and project promotion, staff should pursue and compete for funding allocations. Most MPOs have an established process for the allocation of funds. Freight projects should be integrated/ inserted into this process for consideration. Step 6. Track funding processes. Once a freight project has been successfully incorporated in the funding process, staff should monitor the process to ensure that the project is continu- ously promoted and advocated for as decisions for advancement are made. Common Issues and Potential Solutions There are many issues and challenges that face an MPO’s ability to fund freight projects. Lack of available funding, competition for available funding, eligibility of freight projects for funding, and political support are but a few of the challenges faced by MPOs and their partners. The fol- lowing summarizes the key challenges and offers potential solutions. Common Issue Potential Solution Competition with other projects. The availability of funds makes it imperative that freight projects be competitive within the established ranking and prioritization processes. Given that freight is a relatively new discipline within MPOs, the ability to compete within these established processes is limited. 3-44 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas Develop freight-specific evaluation criteria. To put freight improvement projects on a level playing field with other potential transportation improvements, MPOs should develop evaluation criteria that reflect the economic and business development benefits of freight improvement projects, such as how they may improve shipping-time reliability or the extent to which they may attract or retain businesses and jobs in an area.

Public policy on freight transportation investments. With the exception of roadway- related freight projects, current public policy often hinders investments in existing freight infrastructure and operations. This relates to public investment or subsidy of private for profit operations. Many local, state, and federal agencies currently are struggling with this issue, because freight transportation continues to be challenged with continued growth. Lack of dedicated funding. In general, there are a limited number of dedicated funding sources available specifically for freight transportation. While some states have programs like rail grade crossing safety programs, most local agencies must use existing programs or rely on their ability to access federal earmarks or other federal aid programs. New project development partners. The success- ful development and implementation of freight projects often relies on private sector participa- tion. This requires the development of relation- ships that currently do not exist in many areas. In addition, the development of these relation- ships is often challenged by the differences in planning horizons between public and private sector partners, as well as by the requirements placed on private entities to use public funds. Assessing Freight Project Impacts Overview A critical part of transportation planning and programming is the ability to measure the potential impact of specific projects. These impacts feed into the overall program and help identify the best projects and their resulting impacts on a variety of factors. Specifically, an impact assessment provides a decision tool for comparing investments in alternative projects, provides justification for government investment and the type of government investment, and calculates distributional benefit-cost ratios. The questions the assessment answers include the following: • What are the transportation system performance impacts of the project? • What are the nonfreight implications of freight projects? • What is the economic effect of improvements to transportation system performance? • What are the broader industry and economy effects from direct transportation impacts? • Who benefits from improved freight transportation? • What are the logistics and business process effects of improved freight transportation? • Will the freight transportation project lead to business attraction or retention for a region? To accurately conduct a thorough assessment, MPOs must use a variety of methods. The appropriate method or process will depend on the type of project and anticipated impacts. MPO staff should develop a set of activities that best address project goals. Figure 3.2 illustrates the types and the interrelationships of the various methods used to evaluate transportation investments. Integrating Freight into MPO Activities 3-45 Develop champions and advocates for freight and freight planning. Few local decision-makers and gen- eral public members understand the link between efficient freight movements and quality of life. Artic- ulating the positive benefits of freight can help create advocacy for freight planning and garner support for freight improvement projects. Investigate existing funding programs. Many states and metropolitan areas have existing programs that can be used to fund specific types of freight improve- ments. Many states manage industrial rail access pro- grams, which provide capital to short-line and regional railroads for completing improvements. Other states manage similar programs for other modes. MPOs should investigate the types of funding programs that could be made available for freight improvements. Develop outreach strategies. There are a number of strategies that can be employed to more fully engage the private sector freight community in the planning and programming process. Users should also reach out to economic development agencies and chambers of commerce, because they often have existing rela- tionships with the private sector and many even man- age their own funding and financing programs.

Figure 3.2 represents an idealized framework that can be applied to all transportation invest- ments. It is idealized in the sense that several models do not fit neatly within a single box. It does, however, provide a convenient framework for describing how freight investments can be converted into public benefits. • Travel Demand Methods include the traditional four-step models (trip generation, trip distribution, mode split, traffic assignment), with special attention paid to truck and rail diversions. They also include some of the current thinking on freight models. • Transportation Impact Methods determine the transportation-related benefits from the pro- posed improvements. These can include reduced roadway maintenance costs, reduced oper- ating costs, and reduced shipper costs. These also include hybrid models that blend multiple methods together to address specific needs (Highway Economic Requirements System [HERS] for highways, ITS Deployment Analysis System [IDAS] for ITS deployment, etc.). • External Impact Methods include nontransportation benefits attributable to transportation improvements. These include land use, safety, security, and environmental. • Economic Impact Methods convert the various impact measures into direct and indirect eco- nomic benefits. These include input/output, regional simulation, and regression models. • Decision Methods include methods such as benefit-cost and internal rate of return used to evaluate and help determine the best allocation of public investments. Basic versus Advanced Approach Freight project impact assessment activities range in complexity based on the type of project, the geographic area, and the anticipated impact areas. In general, assessment activities tend to be more complex than some other transportation planning and programming activities. At the most basic level, nonquantitative evaluations can be undertaken to determine potential impacts on communities and key regional industries. The basic approach for freight project impact assessments focuses on qualitative assessments generated from public and private stakeholders and the use of traditional tools historically used by MPO staff, such as travel demand models. More rigorous assessments involve the use of a variety of tools and models to quantitatively measure potential impacts. The advanced approach builds on the basic approach by increasing the use of tools and models to conduct the project impact assessments. The outline of methodologies provided summarizes the types of analyses available to MPO staff based on the type of project. Key Activities The assessment of projects is closely related to the project evaluation criteria and builds on the identification of projects. The results feed into the performance and funding as part of the project justification. Assessment activities focus on the calculation of anticipated impacts to system per- 3-46 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas Travel Demand Methods Economic Impact Methods Decision Methods Transportation Impact Methods External Impact Methods Figure 3.2. Framework for evaluating transportation investments.

formance, whether they be economic-, environmental-, or transportation-specific. The approaches focus on activities that identify potential impacts from the qualitative and quantitative perspectives. Qualitative efforts focus on interviews and focus groups with impacted communities (private and public) and can be undertaken with low levels of effort as part of the basic approach. The quantitative activities focus on the use of models and more rigorous stakeholder input. Basic Approach Activity • Assessing Freight Project Impacts—Basic Activity Type • Programming Level of Effort • Low to Moderate Technical Complexity • Low Data/Analytical Tool Needs • Moderate. Conduct significant private partner outreach to evaluate quali- tative impacts; use existing travel demand model, as appropriate. Outreach/Partnership Needs • High. Conduct significant outreach to private partners to build support for projects; activities should consist of interviews, focus groups, and for- mal freight technical advisory committee meetings. Training/Education Needs • Low. Requires staff to apply freight knowledge to impact analyses; should explore resources available from FHWA. • http://ops.fhwa.dot.gov/freight/FPD/index.asp Related Activities • Regional Freight Profile, Freight Project Identification, Freight Project Evaluation Criteria, Freight Project Funding and Innovative Financing. Key activities: Conduct qualitative assessments of the impacts of freight projects. Step 1. Identify potential impact areas. Individual projects will have specific impacts, how- ever, these impacts will fall into similar categories, including economic, environmental, com- munity quality of life, and transportation access and mobility. Step 2. Identify key stakeholders. To ascertain the specific impacts, it is necessary to identify the key stakeholders. These stakeholders will consist of industry representatives (carriers, manufac- turers, retail operations, etc.) and the general public (residential areas, community centers, etc.) located in close proximity to the project area. These stakeholders will be accessed to identify key qualitative impacts. Step 3. Conduct stakeholder interviews and focus groups and analyze findings. The list of stakeholders identified in Step 2 will be contacted and engaged in a series of interviews and focus groups to identify impacts and issues. Step 4. Review existing transportation model for application. Basic model outputs can be used to highlight problem areas and project impacts. Many MPOs may have already developed truck assignments that can be used in existing travel demand models to calculate the impact on truck operations. If the existing models have the capabilities, their outputs should be used to calculate project impacts. Step 5. Develop recommendations and impact assessment summaries. Based on the stake- holder input and potential model outputs, a summary of the impacts should be developed. The results will feed into project prioritization and funding activities. Advanced Approach Activity • Assessing Freight Project Impacts—Advanced Activity Type • Programming Level of Effort • High Integrating Freight into MPO Activities 3-47

Technical Complexity • High Data/Analytical Tool Needs • High. Relies on the data collected and tools developed as part of the regional freight profile, the freight needs and deficiencies, the freight project identification, the freight LRP element, and all the evaluation activities. Also, relies on significant private partner outreach. Outreach/Partnership Needs • High. Conduct significant outreach to private partners to build support for projects; activities should consist of interviews, focus groups, and formal freight technical advisory committee meetings. Training/Education Needs • High. Requires staff to apply freight knowledge to project impact analyses using advanced tools, such as models or simulation programs; should explore resources and training available from FHWA and NHI. • http://ops.fhwa.dot.gov/freight/FPD/index.asp Related Activities • Regional Freight Profile, Freight Project Identification, Freight Project Evaluation Criteria, Freight Project Funding and Innovative Financing. Key activities: Develop and implement quantitative project impact assessment process. Step 1. Classify the type of project. To assign the appropriate methods for analyzing large- scale freight projects, staff must first classify the project in terms of its spatial, modal and action/intervention characteristics: • Type of Facility Location: (a) local entry/access point, (b) regional corridor, (c) facility; • Type of Modes Involved: (a) air, (b) water, (c) rail, (d) truck, (e) combinations; • Type of Motivation: (a) capacity, (b) access, (c) speed/flow, (d) cost, (e) reliability; and • Type of Investment: (a) expand existing facility, (b) build new or alternative facility, (c) provide new modal service, (d) make an operational improvement to existing facility. Step 2. Define the relevant evaluation issues. Based on the type of project and potential impacts, staff should identify the key objectives and policies to be addressed, for example: • National freight network capacity or LOS, • National economic growth and productivity and international trade, • Local or regional income and economic development, • Benefits to particular mode, carrier, or industry-specific targets, and • Allocation of costs and benefits to assess equitable funding. Step 3. Select and apply the relevant tools for calculation of transportation impacts. The primary analysis tools will establish direct impacts. The types of tools consist of the following: • Network Analysis: Providing links, nodes, capacity and performance—rail, highway; • Facility Handling Analysis: Capacity and cost for ports, terminals, bridges, tunnels; and • Shipper and Operator Logistics Analysis: Ultimate cost implications of mode and facility choices. After selecting the required type of tool, it is critical to identify the types of input data needed and potential sources needed to use those tools for a freight investment analysis. The types of data include the following: • Vehicular traffic in terms of origin-destination, time, distance, vehicle class or purpose; • Commodity flow patterns in terms of volume, weight, or value by commodity type; • Freight flow classifications in terms of bulk, break bulk, container, truck load, less than truck load; • Prices and costs for operators and users; and • Assumptions on values of time delay, schedule reliability, and cost-sensitivity. 3-48 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas

Some projects will have complicating factors not addressed by the primary methods that can- not be ignored. These are primarily cases where the project focuses on a single mode, but has a secondary impact on other modes because it either (a) directly affects the cost, performance, or level of demand for other modes or (b) indirectly shifts the relative differences in cost or per- formance among modes. These secondary transportation performance impacts need to be con- sidered as part of the impact analysis and they are one of the critical features of many large scale freight projects. If any of these secondary impacts are expected, additional tools should be selected to charac- terize the nature of those impacts, which will then be used to provide additional input to the pri- mary analysis tools. These types of tools include the following: • Shipper logistics choice models, • Intermodal performance models, and • Analysis of economic impact on modal competitiveness. Step 4. Select and apply the relevant tools for calculation of expected economic impacts. Having identified the direct effects on freight flow, performance and cost in Step 3, the next step is to provide guidelines for translating those findings into relevant policy impacts (as previously identified in Step 2). The relevant policy impacts will be defined in terms of magnitude and inci- dence, broken down by the following dimensions: • Form of Economic Impact: Cost reduction, productivity, income generation, jobs; • Geography of Impacted Markets: Local, regional, national, international; and • Distribution of Economic Impacts: In terms of shipper/user (commodity and economic sector) categories or mode/operator categories, as applicable to address policy issues. To calculate or estimate those impacts, it is necessary to apply additional analysis models that will translate the “Step 2 transportation impacts” into the selected types of “Step 4 economic impacts.” The types of economic models that can be applicable for each type of economic impact include the following: • Supply chain models, • Regional economic growth or impact models, • National production or productivity models, and • International trade models. Step 5. Apply relevant decision methods. Having estimated the expected economic impacts from proposed freight investments in Step 4, the final step is to present those eco- nomic impacts in a format that can be effectively used for investment decision-making. The user will be free to select among various project ranking and selection methods, including the following: • Benefit-cost analysis, • Cost-effectiveness analysis, • Equity impact analysis, and • Multicriteria weighting analysis. Common Issues and Potential Solutions Assessing proposed project impacts can be a complicated process, especially if the ultimate goal is to calculate quantitative measurements. Major challenges include data and tool avail- ability, the ability and expertise to use the tools, and the development of new processes to Integrating Freight into MPO Activities 3-49

specifically address freight issues. The following summarizes the key challenges and offers poten- tial solutions: Common Issue Potential Solution Lack of available data and tools. The use of tools and models requires significant data resources. These data are not always available and can be costly and difficult to collect. Many MPOs do not have a suite of tools to assess freight transportation projects. Air quality and travel demand models may be common, but they do not always account specifically for freight. Other models that provide specialized calculations, such as economic impacts, are less common. Development of new processes. The effective use of existing and new models specifically designed or enhanced to accommodate freight project characteristics will likely require the creation and adoption of new processes. These will need to be effectively integrated into existing processes. In addition, to assess effectively the impacts of freight projects, a variety of activities will be required. One of the most difficult activities will be the integration of the various results to develop final conclusions and recommendations. Lack of staff expertise. Most MPOs currently do not have staff with extensive experience assessing freight project impacts. This will require the development of new skills. Data and Analytical Tools Overview There is a wide variety of data that small- and medium-sized MPOs would like to have to sup- port freight policy, planning, and programming activities. In fact, data availability and quality will likely be the most significant consideration driving an overall transportation program. Spe- cific freight data and analytical tools have been called out within each of the subject areas to reflect the fact that they directly impact all aspects of a freight transportation program. The key types of freight data include the following: • Commodity flow data describe the types of commodities that move in a region, the origins and destinations of the flows, and the modes used; • Traffic data describe volumes of vehicle movements on critical facilities by mode; • Trip origin-destination data describe where freight shipments are moving; • Travel time data describe how long it takes to move from point A to point B; • Freight rates and costs describe total transportation costs; • Trip generation characteristics of different types of land uses (for impact analysis) describe the types of industries that generate the largest number of trips; 3-50 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas Investigate sources of freight data and tools. There are a number of publicly available freight data sources and tools that can be useful. State DOTs, FHWA, and other agencies are potential sources of freight data and in many cases are sources of tools and analytical support. Many states are supporting freight planning at their MPOs by developing freight models for them. State DOTs can also be important sources for other tools and techniques, such as benefit-cost analysis and others. See the Data and Analytical Tools section of this module for more guidance. Designate a Freight POC. A freight technical lead should be designated within the MPO. This POC can act as the liaison between the MPO’s various trans- portation initiatives and between the MPO and other agencies and stakeholders to ensure that freight issues are addressed within multiple MPO activities. Investigate training and education opportunities. There are a number of training and education oppor- tunities available to MPO staff to enhance under- standing of freight, its common issues and concerns, and how it can be more effectively integrated within a transportation planning process. See Module 5 for a listing of training and education resources.

• Emissions from freight activity describe air quality and noise impacts of freight traffic; and • Accident and safety data related to freight activity describe accident rates and safety implications of freight movements. In a number of instances, these types of data are available from public sources. However, these publicly available data are not often available with sufficient detail to be useful to small- and medium-sized MPOs. Thus, these MPOs may be faced with the need for tools that can be used to estimate local data from state and federal sources or they will have to collect data themselves. There are a variety of analytical tools in use today throughout North America. These tools allow MPOs to forecast traffic movements, measure air quality impacts, evaluate economic impacts, and analyze and display data and networks geographically. More advanced tools work in concert with other tools to conduct specific calculations relating to modal diversion, mode choice, travel behavioral patterns, performance measures, and so forth. Examples of analysis tools include the following: • Economic impact models, • Travel demand models, • Air quality impact models, • Performance-based models (e.g., Surface Transportation Efficiency Analysis Model [STEAM], IDAS), • Discrete choice models and modal diversion models, and • GIS. Basic versus Advanced Approach The development of a comprehensive data collection program and supporting analytical tools demands a significant effort and commitment by MPO staff. The basic approach focuses on initial data collection activities. This approach consists of the steps required to describe and quantify freight movements in a region and directly supports the development of a regional freight profile and many subsequent activities. The basic approach works with established and available data sources from local, regional, state, and federal sources. A limited number of surveys and interviews are included to provide more detailed descriptions of key freight characteristics and movements. The advanced approach builds on the basic approach. It focuses on the development and application of a range of tools and models to analyze the available data. Development of a truck assignment feature within a regional travel demand model is an example of an advanced approach, because it integrates basic data already collected by many MPOs, such as traffic counts and vehicle classification data, and incorporates behavioral characteristics captured from surveys and interviews. Key Activities All MPOs have data collection programs that support their transportation programs. These data collection programs rely on local, state, and federal initiatives. For example, state DOTs provide traffic volumes and vehicle classification counts for the state highway system. The U.S. DOT pro- vides extensive data resources through the BTS. Local agencies augment these resources with local data that provide congestion, LOS, and traffic volumes on local highways. In addition, data typi- cally are available from major ports, airports, and railroads. The data collection activities described in this section focus on the effective integration of available data sources, the inclusion of freight- specific data, and the collection of more detailed freight data through use of surveys and interviews. The data collection program provides descriptive information that can be used to develop a regional profile, identify needs and deficiencies, and ultimately support the development of improvement projects. These data collection activities also feed into available tools and models. Integrating Freight into MPO Activities 3-51

This section identifies the types of tools and models used by MPOs and describes the opportuni- ties that exist to use them for freight planning and programming activities. For example, small- and medium-sized MPOs can develop freight and truck models to analyze existing and future system performance. Multimodal freight models are rare but there is some guidance in NHI-sponsored courses and other resources on how these types of models are applied in MPO settings. More often, small- and medium-sized MPOs develop simple truck model add-ons to their existing travel demand models. A simple technique for doing this with default data is described in FHWA’s Quick Response Freight Manual. NCHRP Synthesis 298 also describes this technique in general terms and provides alternative sources for truck trip generation data that can be used in these models. Basic Approach Activity • Data and Analytical Tools—Basic Activity Type • Policy, Planning, and Programming Level of Effort • Moderate Technical Complexity • Low to Moderate Data/Analytical Tool Needs • N/A Outreach/Partnership Needs • Moderate. Requires outreach to private partners through interviews, focus groups, surveys, and formation of a freight technical advisory committee to support a wide range of activities that rely on data and input. Training/Education Needs • Moderate. Requires that staff understand and be able to work with avail- able freight data sources; should explore resources and training available from FHWA and NHI. • http://ops.fhwa.dot.gov/freight/FPD/index.asp Related Activities • Supports all activities. Key Activity: Compile readily available data from public sources and conduct simple surveys. Step 1. Identify and collect readily available freight data. The types of data that are likely to be available to small- and medium-sized MPOs will include the following general sources: • Vehicle classification counts on state roads (from state DOT), • Truck-involved accident data on roads (often available from state DOT), • Data on rail tonnages and commodities from Surface Transportation Board (STB) Carload Waybill Sample, • Data on waterborne commerce tonnages and commodity from Army Corps of Engineers Waterborne Commerce Series, • County-level commodity flow data (from TRANSEARCH). (The cost of this data may be pro- hibitive for some small MPOs but a number of states have purchased these data for their MPOs), • Truck trip generation data for different land uses (available in NCHRP Synthesis 298), and • General economic data (employment by industry at the county level in County Business Patterns). Step 2. Collect basic stakeholder data through interviews and surveys. In addition to the available data sources, it is useful to conduct modest surveys of freight stakeholders to get infor- mation about the location of major freight facilities, the volumes of traffic they handle, and the general origin-destination characteristics of the traffic. Step 3. Feed data into other freight policy, planning, and programming activities. Freight data represent the basic ingredients for the majority of guidelines provided in this Guidebook. They impact the definition of goals and objectives, the development of a regional profile, the identification of needs and projects, and all the activities used to program and fund improve- ment projects. 3-52 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas

Advanced Approach Activity • Data and Analytical Tools—Advanced Activity Type • Policy, Planning, and Programming Level of Effort • High Technical Complexity • High Data/Analytical Tool Needs • N/A Outreach/Partnership Needs • High. Requires outreach to private partners through interviews, focus groups, surveys, and formation of a freight technical advisory committee to support a wide range of activities that rely on data and input. Training/Education Needs • High. Requires that staff understand and be able to work with available freight data sources and tools such as travel demand models; should explore resources and training available from FHWA and NHI. • http://ops.fhwa.dot.gov/freight/FPD/index.asp Related Activities • Supports all activities. Key Activity: Develop local data collection program and develop analytical tools as appropriate. Step 1. Identify and collect readily available freight data. Before a data collection program can be developed, it is important to identify what is already available (see Step 1 under Basic Approach). Step 2. Identify data needs and data collection activities. After reviewing what is available, MPO staff should develop a data collection plan that will be used to fill in the missing areas of data based on what the MPO is trying to accomplish. This should include expanded count pro- grams, roadside intercept surveys, freight facility surveys, and stakeholder interviews. The fol- lowing summarizes these activities: • Vehicle Classification Count Programs. Generally, vehicle classification counts are the easi- est type of local data to collect. They can be collected at a relatively low cost and are useful for identifying critical corridors, monitoring growth in truck activity, and validating models. MPOs should work closely with state DOTs so as not to duplicate efforts. Counts on nonstate facilities (especially major arterials and local roads that connect to major freight facilities) are good candidates for local data collection. • Roadside Intercept Surveys. Roadside surveys are useful to get an idea of commodities that are moved on key facilities as well as for getting origin-destination data. The problem with roadside surveys is that there are very few places where they can be conducted without dis- rupting the flow of traffic. Weigh stations, inspection stations, rest areas, and truck stops are some of the types of places where MPOs are conducting roadside surveys. It may be possible to find these types of places on major roads entering and exiting a region so these are used for this type of data collection. • Freight Facility Surveys. Interviews or mail out surveys can be conducted to get information on the volumes and types of goods that are handled at major facilities. This can be useful to develop trip generation data. • Stakeholder Surveys. A limited number of interviews should be conducted with key stake- holders to gather detailed information that can be used to qualify and describe the quantita- tive datasets described. One of the key activities that will be addressed by this effort will be the development of specific logistics patterns and supply chain management techniques. Step 3. Identify and review available analysis tools. There are many types of analysis tools in use today to support transportation planning and programming activities. Before specific data collection activities begin, it is important to understand the extent that these tools are available Integrating Freight into MPO Activities 3-53

and planned for use in freight initiatives. The selected tools will in part dictate the type of data that will be required. Step 4. Identify and develop new or enhanced analysis tools. Based on a review of the avail- able tools, MPO staff should determine which tools will best support freight program develop- ment. In some instances, this may require enhancements to existing models or development of new models. The development of new models can be a significant undertaking. Staff is encour- aged to work within established models when possible. For example: • Travel Demand Model. An existing travel demand model may or may not have truck assign- ments. If it does, staff should review the development process and data requirements. If it does not, staff should work with the modeling staff to ascertain the requirements necessary to develop one. • Economic Development Model. There are a variety of economic impact models. Some pro- vide sketch tool planning, others consist of data intensive input and output elements which yield benefit-cost ratios. If an MPO does not currently have an economic impact model, staff should review applicability of models used by counterparts in other locations. • Air Quality Model. Development of an emissions inventory is an important element of regional planning. Most MPOs have some experience in this arena. The typical mobile source analysis focuses on highways, including trucks. Emissions factors also are available for other modal vehicles. MPO staff should review available models and data to determine what is avail- able to measure the impact of freight operations. Step 5. Conduct data collection. MPO staff should develop and implement a data collection program designed to enhance existing data and support the development and use of individual tools and models. Steps 1 through 4 describe the types of activities that the data collection pro- gram will support. Step 6. Integrate data into key activities and established tools to support development and maintenance of the freight-related activities addressed by this Guidebook. This final step should effectively manage and integrate the data collection and tool applications, as appropri- ate, to support the subject areas defined and discussed in this Guidebook. Common Issues and Potential Solutions There are several key challenges that impact the development of a successful data collection program and the effective use of quantitative tools and models. These challenges include avail- able funding, level of staff expertise, soliciting input from private partners, maintaining the pro- gram over time, and the need to support multiple activities. The following summarizes the key challenges and offers potential solutions. Common Issue Potential Solution Funding. The development and implementation of a comprehensive data collection program and the tools and models it supports are significant undertakings by MPO staff and its partners. Data collection can be costly, as can be tool and model development. 3-54 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas Investigate cost-effective sources of freight data and tools. There are a number of publicly available freight data sources and tools that can be useful to MPOs and that have minimal costs. In addition, state DOTs, FHWA, and other agencies are potential sources of freight data and in many cases are sources of tools and analytical support. There are many opportunities for MPOs to combine different data sources to develop a more comprehensive understanding of freight movements in their area.

Staff expertise. Many freight-specific datasets and analytical tools are still in their early stages and many MPOs are still in the early stages of applying them to their programs. Private industry participation. Private sector freight data are often considered proprietary and therefore confidential. This complicates the data collection activities and the completeness of the regional freight profile. Ongoing commitment. Data collection activities should be undertaken as an ongoing program to develop current and trend descriptions of the region’s freight system. It is important that initial data collection activities not be so elaborate and costly that they are seen as one time events. Training and Education Overview In recent years, freight training and education have become significant focus areas for MPOs and state DOTs as staff continues to expand and develop freight transportation pro- grams. Training opportunities, while still limited, have expanded to meet these demands. FHWA has taken the lead for much of the training and education activities through its FPD program. Key components of this program include a peer exchange program and the Talk- ing Freight seminar series. In addition, the NHI has partnered with FHWA to facilitate the development of specific courses in the areas of transportation planning and freight model- ing. At a more localized level, specific vendors provide training for their tools and products. For example, travel demand model vendors provide training seminars and model conversion services to assist MPOs and state DOTs use their models. In addition to these formalized training and education programs, outreach activities often are used by MPOs and state DOTs to educate system users and impacted communities of the positive benefits of efficient freight transportation. Freight training and education efforts typically focus on the following areas: • Promote need for efficient freight transportation. Freight is an integral part of an inte- grated, multimodal transportation system; it must be incorporated to achieve a truly balanced system. Integrating Freight into MPO Activities 3-55 Investigate training and education opportunities. There are a number of training and education oppor- tunities available to MPOs to enhance understanding of freight, its common issues, and how it can be more effectively integrated within a transportation planning process. Peer exchange programs can be effective ways to build staff expertise in particular subject areas. See Module 5 for a listing of training and education resources. Develop outreach strategies. There are a number of strategies that can be employed to more fully engage the private sector freight community in this process. Before sharing data with an MPO, most private sector freight stakeholders want to see the potential benefits of providing data and participating in the process. Developing outreach strategies that describe the potential benefits of participation can help, such as providing missing data necessary to promote an improvement project. Ensuring confidentiality of data is another key factor. The Outreach and Partnerships section in this module describes some of the more successful strategies. Dedicate yourself to data collection. MPOs must realize that data collection is an ongoing, dynamic process. MPOs should consider building time and budget for collecting and reviewing freight data into their UPWPs. In an environment that has limited data collection dollars, it is critical that staff work to include freight considerations or enhancements to existing programs. For example, annual count pro- grams can be revised or modified to include key inter- modal connectors and truck corridors.

• Identify freight as relevant component of the transportation system program. While MPOs typically have limited control over non-highway modes of freight transportation, it is critical that local transportation programs address all established aspects of freight transportation, because each mode/operation impacts the community. • Define opportunities for integrating freight into existing programs. Effective integration of freight operations into an established program will enhance a region’s ability to predict and manage congestion, safety, and key bottlenecks. • Provide specific instruction on individual analysis tools. There are many tools available to staff, including economic impact, travel demand, and air quality; these tools typically are pro- vided with instruction and training. • Define and provide wide variety of freight data and research. Many MPOs and state DOTs have undertaken freight initiatives that can be used as best practices; in addition, organizations like NCHRP, TRB, and AASHTO have and continue to develop resources to assist MPOs. • Build political and technical support for freight program development. Outreach is a criti- cal component in the education process; impacted citizens and leaders must understand the importance of freight transportation. Basic versus Advanced Approach The distinction between basic and advanced approaches to freight training and education is driven by the type of activities that an MPO is undertaking, as well as the resources available. For an MPO with limited freight background, the training and education needed to undertake the development of freight policies and a regional freight profile may consist of FHWA’s Talking Freight seminar series and peer-to-peer exchange program, combined with outreach to a lim- ited number of private partners. For MPOs that have developed a basic description of their freight system and are engaging in more advanced analytical and modeling techniques, the train- ing and education activities may consist of attendance at formal training courses or bringing technical experts in-house to train staff. Key Activities Training and education activities should focus on the defined needs of an MPO. The exercises defined in Module 2 provide staff members with a comprehensive analysis of what they do and do not know about freight transportation. This section defines the types of training and educa- tion activities that can be undertaken to meet basic and advanced needs. It is important to acknowledge that specific topics should be based on intended program direction. The types of activities will fall into the following categories: • Staff Initiative. Many staff members have developed expertise in freight through their own actions, such as regular review of industry periodicals and other literature available on specific modes, supply chain management, and trade. • Peer Exchange. Learning from the experiences of counterparts around the country is a sim- ple yet invaluable mechanism. In fact, FHWA’s freight peer-to-peer program was developed to facilitate this kind of activity. • Private Industry Outreach. One of the best ways to learn about freight is to meet with repre- sentatives from industry. They will provide real-life descriptions of business operations, key decision factors, and transportation needs. • Training Courses. Training courses provide specific instruction on a particular subject. This type of educational activity is most useful for a staff that is undertaking a specific advanced freight transportation initiative. 3-56 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas

Basic Approach Activity • Training and Education—Basic Activity Type • Policy, Planning, and Programming Level of Effort • Low Technical Complexity • Low Data/Analytical Tool Needs • Moderate. Requires outreach to private partners to collect data on the freight system; collect and review available research and data from avail- able sources (other MPOs, state DOTs, FHWA, etc.) Outreach/Partnership Needs • Moderate. Requires limited but ongoing outreach to a limited number of private partners to build knowledge base of freight operations and local issues. Training/Education Needs • http://ops.fhwa.dot.gov/freight/FPD/index.asp Related Activities • Supports all activities. Step 1. Evaluate training needs. It is critical that the staff review the freight policies, the results of the Module 2 exercises, and the key characteristics and needs of the region to ascertain areas of required expertise. Step 2. Identify available training opportunities. Based on the results of Step 1, staff should identify key training opportunities. At the basic level, this will include personal initiative to become familiar with industry operations, outreach to private partners, and participation in peer groups such as FHWA’s peer-to-peer exchange program and Talking Freight seminar series. Step 3. Participate in training activities. Once the key opportunities have been identified, staff should develop and implement training activities on a regular basis. The activities defined in Step 2 can be used repeatedly over time to enhance expertise in freight transportation. Advanced Approach Activity • Training and Education—Advanced Activity Type • Policy, Planning, and Programming Level of Effort • Moderate to High Technical Complexity • Moderate to High Data/Analytical Tool Needs • Moderate. Requires outreach to private partners to collect data on the freight system; collect and review available research and data from avail- able sources (other MPOs, state DOTs, FHWA, etc.) Outreach/Partnership Needs • Moderate to High. Requires ongoing outreach to private partners to build knowledge base of freight operations and local issues. Training/Education Needs • http://ops.fhwa.dot.gov/freight/FPD/index.asp Related Activities • Supports all activities. Step 1. Evaluate training needs. It is critical that staff review the freight policies, the results of the Module 2 exercises, and the key characteristics and needs of the region to ascertain areas of required expertise. Step 2. Identify available training opportunities. Based on the results of Step 1, staff should identify key training opportunities. At the advanced level, this will build on the basic activities to include more focused outreach to private partners (such as focus groups) and identification and scheduling of more intensive freight training courses (such as NHI’s Integrating Freight into Transportation Planning Process and Uses of Multimodal Freight Forecasting in Transportation Integrating Freight into MPO Activities 3-57

Planning courses). In addition, training should be identified for specific tools and models that staff considers critical for the support of the freight program development. Step 3. Develop formal training program. Staff should define an annual training program that incorporates the needs of the MPO, the availability of training courses, and the availability of funding to support staff attendance. This program should appear in the MPO’s UPWP. Step 4. Implement training program. The implementation of the training program should correspond to the current level of expertise and the planned freight activities. For example, a peer-to-peer exchange could be scheduled to provide access to expertise in a specific area or, if the MPO is scheduled to update its travel demand model, staff should work with FHWA and NHI to schedule the current freight modeling course.3 The program should be reviewed and updated annually to provide an ongoing opportunity for staff members to develop and enhance their freight expertise. 3-58 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas FHWA’s FPD Program In response to customer needs, the FHWA’s Office of Operations launched the FPD program. This initiative assists state DOTs and MPOs in developing the skills and knowledge needed to meet the challenge of growing freight flows on the nation’s transportation system. The FPD program consists of four key elements: training, education, technical assistance, and a resource library. • Training. The FPD program provides training, including short courses and seminars, on a broad range of freight topics. Two FPD courses were offered through NHI in fiscal year (FY) 2005: Integrating Freight in the Transportation Planning Process and Uses of Multimodal Freight Forecasting in Transportation Planning. • Education. The FPD program works with the academic community to promote needed changes in transportation planning and logistics degree programs critical to ensuring the future availability of appropriately trained freight professionals. Many university-based freight and related degree programs are identified on the new FPD web site at http://ops.fhwa.dot.gov/freight/FPD/index.asp. • Technical Assistance. The FPD program provides assistance to states and MPOs engaged in transportation and freight planning. The ongoing Talking Freight sem- inar series offers a no-cost way for freight transportation professionals to broaden their knowledge and develop new skills. Seminars are held monthly and are open to all interested parties through http://ops.fhwa.dot.gov/freight/fpd/talking_ freight.htm. The Freight Planning LISTSERV, located at www.fhwa. dot.gov/freightplanning, also provides a forum for peer information exchange. • Resource Library. The FPD program offers a web-based one-stop shop for current information and state-of-the art practices pertaining to freight. The resource library is located on the FPD web site. Source: http://www.ops.fhwa.dot.gov/aboutus/one_pagers/fpd.pdf. 3FHWA-NHI-139002, Uses of Multimodal Freight Forecasting in Transportation Planning. http://www.nhi.fhwa.dot.gov/ training/course_detail.aspx?num=FHWA-NHI-139002&cat=&key=&num=139002&loc=sta=%25&tit=typ=&lev=&ava= &str=&end=&drl=.

Common Issues and Potential Solutions There are several key challenges that impact the development of a successful training and educa- tion program. These challenges include availability of funding, availability of staff, and availability of training opportunities. The following summarizes the key challenges and offers potential solutions: Common Issue Potential Solution Funding. The development and implementation of a comprehensive training and education program can be costly. Staff availability. Many MPOs have staff members operating in an environment where they have multiple responsibilities. For example, freight activities often represent additional work for a staff member as opposed to a reassignment to work exclusively in the area of freight. Availability of training opportunities. Although freight training opportunities do exist, they are limited. This limits the type of training available, as well as the ability to schedule training courses in a timely manner. Outreach and Partnerships Overview MPOs with successful freight planning programs typically cite the active participation of freight stakeholders as a key success factor. Participating firms and individuals serve as resources through- out the transportation planning process, with activities that range from definition and review of freight policies to identification of a regional freight profile, to project prioritization and imple- mentation. Such assistance and support are critical to ensure that the region’s freight needs are correctly defined and that freight projects receive an appropriate level of priority. Although outreach activities cannot and should not serve as the primary tools for analyzing existing conditions and developing the freight transportation program, they can be used effectively to build staff expertise in freight, logistics, and supply and distribution patterns, and in other areas. Outreach activities can also be used to build political and community support for a freight planning program. Having private sector participation assists MPOs in a number of ways, such as • Facilitating private sector acceptance of transportation program elements, • Promoting the strategic role of freight to the region’s economic competitiveness, • Improving industry support of and cooperation with freight data collection efforts, • Leading efforts for creating public-private freight partnerships, and • Rallying political support for freight-related projects. Identifying target firms and individuals can actually be somewhat easier with small- and medium-sized MPOs because the pool of target candidates tends to be smaller and better known. Integrating Freight into MPO Activities 3-59 Investigate low-cost training opportunities. FHWA’s Talking Freight seminar series is conducted via conference call and the Internet and therefore is a low-cost option. The peer-to-peer exchange program can also be a low-cost alternative. In addition, FHWA often “sponsors” a select number of NHI courses each year at little or no cost to participating agencies. MPO staff should work with state DOT and FHWA partners to investigate these and other low-cost training opportunities. Promote the importance of freight to build manage- ment support. Freight is an up and coming field that will only receive more attention in the coming years. Staff should develop a brief overview that describes the freight system, its impact on the region, and the types of encouragement and training resources available. Communicate need for training to state and federal partners. Staff should work with state and federal partners to promote the need for training. This type of support and outreach will stress the need for train- ing and will encourage the expansion of existing courses and the development of new courses.

Logical starting points are area chambers of commerce, traffic clubs, and logistics organizations. Typically, the leaders within these organizations are familiar with the members of the freight community and may be in a position to suggest candidates. Membership in freight committees is encouraged to be on an appointment basis, in coordination with the local elected bodies (e.g., via MPO staff nomination to appropriate elected officials such as mayor[s], county com- missioners, etc.). Appointments can legitimize the acceptance of this committee as a formal com- ponent of the transportation program. Basic versus Advanced Approach The major distinguishing characteristics between preparing a basic versus an advanced out- reach and partnership program relates to the scope and continuity of efforts. Basic outreach and partnering simply relates to engaging a smaller community of freight stakeholders and engaging these stakeholders less frequently. Conversely, advanced outreach involves engaging more freight stakeholders on an ongoing basis. Basic outreach and partnering is typical of small MPOs, MPOs in regions dominated by sin- gle, mature industries, or MPOs with fewer transportation modes and options. Such regions typ- ically have smaller or less complex freight networks, with reduced needs for ongoing interaction with freight stakeholders. However, this does not mean that MPOs in such areas can ignore freight stakeholders or the need to maintain regular interaction. Such communication can be key in rec- ognizing changing economic and logistical conditions. Such outreach efforts also encourage freight industry support and cooperation with other planning and project prioritization efforts. Larger MPOs or MPOs in areas with more complex and dynamic conditions tend to expend more energy engaging freight partners on an ongoing basis, emulating the approaches used and proven valuable by large MPOs. A typical advanced approach is to create a committee of freight stakeholders that meets regularly (usually monthly, quarterly or semiannually), consisting of representatives from major shippers, distributors, and modal carriers in the region. This com- mittee reviews area freight needs and identifies current or potential projects that could address these needs. MPO personnel typically serve as staff to such committees, arranging meetings, coordinating the agenda, and providing information and reports as needed to keep the com- mittee informed of relevant projects. Key Activities The development of effective outreach and partnership activities is a critical component in an MPO’s transportation planning program. These activities provide system users and impacted communities with the ability to identify their issues and participate in the development of system improvements. Various options exist to engage freight stakeholders. Activities can be designed to address specific issues or projects, or they can be more open ended. For example, a major corridor analysis would focus outreach to those stakeholders operating in the corridor/ subregion and would ascertain potential impacts on specific improvement alternatives. A more general approach could include regionwide outreach to stakeholders to support the development of a regional freight profile and the identification of systemwide constraints or bottlenecks. This section provides basic and advanced approaches for outreach and partnership development activities. The types of activities include surveys, interviews, focus groups, advisory committees, and freight appointments to existing boards and committees. The specifics of the activities should be customized to meet the needs of the specific freight program direction. Outreach and partnership activities support all aspects of policy, planning, and programming and will need to be developed in a way that supports the activities selected by an MPO. 3-60 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas

The success of outreach activities with the private sector freight industry is impacted by several factors: • Profitability and economic competitiveness. The most basic motivator for private sector firms is economic; these entities exist to produce profits for investors. While it is also in the long- term interest of firms to be good corporate citizens, economic considerations provide the strongest link between corporate activities with the community and, therefore, serve as the strongest predictor of continued and engaged stakeholder interest. • Partnerships with local industry leaders and organizations. Local traffic organizations and chambers of commerce can often assist by suggesting firms and individuals with appropriate skills and interests to participate in freight planning activities and potentially act as freight champions. Such outreach to the local chambers, traffic clubs, and logistics organizations is a basic element in stakeholder outreach efforts. • Private sector impacts. Because freight-focused firms are logistically sensitive, freight projects will seldom impact all stakeholders equally. As such, they carry the potential for changing the competitive dynamics of firms. This makes the project selection process politically sensitive to claims of favoritism. Basic Approach Activity • Outreach and Partnerships—Basic Activity Type • Policy, Planning, and Programming Level of Effort • Moderate Technical Complexity • Low Data/Analytical Tool Needs • Moderate. May require data collection efforts. Outreach/Partnership Needs • N/A Training/Education Needs • Low. Requires staff to apply basic freight knowledge, particularly relating to stakeholder outreach activities; should explore resources available from FHWA. • http://ops.fhwa.dot.gov/freight/FPD/index.asp Related Activities • Supports all activities. Key activity: Identify and develop freight outreach program. Step 1. Identify key planned freight program elements. Before an outreach plan can be developed, it is important to understand the basic direction of the program. Initial policy and profile work versus alternatives analyses and program implementation require different levels of outreach and partnership building. Step 2. Define anticipated outreach and partnership needs. Based on the anticipated pro- gram development, staff should define expectations for the outreach plan. What type of input is needed? What will the time commitment be? Step 3. Identify potential private sector partners. The pool of potential partners will be dependent on the region’s freight system. A mix of stakeholders should be identified to address each mode, major industry, economic development, and impacted communities. Completion of a regional profile will aid in this step. Step 4. Conduct specific outreach on as needed basis. The outreach plan can consist of sur- veys, interviews, focus groups, and committees. In general, outreach is conducted as part of data collection activities. Activities should be identified to support freight program activities. Step 5. Solicit participation in ad hoc FAC. It is important to have a body of freight experts to use for key decisions impacting program direction. Although this approach does not call for regular meetings, it does require that there be a FAC available to staff for periodic use. Integrating Freight into MPO Activities 3-61

Step 6. Solicit input on freight program development on an as needed basis. Staff should use the FAC on an as needed basis to address specific freight program activities. This interface should be used prudently to ensure the committee members are not over taxed and remain engaged. Advanced Approach Activity • Outreach and Partnerships—Advanced Activity Type • Policy, Planning, and Programming Level of Effort • High Technical Complexity • Moderate Data/Analytical Tool Needs • Moderate. May require data collection efforts. Outreach/Partnership Needs • N/A Training/Education Needs • Low. Requires staff to apply basic freight knowledge, particularly relating to stakeholder outreach activities; should explore resources available from FHWA. • http://ops.fhwa.dot.gov/freight/FPD/index.asp Related Activities • Supports all activities. Key activity: Develop a formalized freight outreach program that is integrated into ongoing transportation program development. Step 1. Identify key planned freight program elements. Before an outreach plan can be developed, it is important to understand the basic direction of the program. Initial policy and profile work versus alternatives analyses and program implementation require different levels of outreach and partnership building. Step 2. Define anticipated outreach and partnership needs. Based on the anticipated pro- gram development, staff should define expectations for the outreach plan. What type of input is needed? What will the time commitment be? Step 3. Identify potential private sector partners. The pool of potential partners will be dependent on the region’s freight system. A mix of stakeholders should be identified to address each mode, major industry, economic development, and impacted communities. Step 4. Conduct specific outreach on as needed basis. The outreach plan can consist of sur- veys, interviews, focus groups, and committees. In general, outreach is conducted as part of data collection activities. Activities should be identified to support freight program activities. Step 5. Solicit participation or appointment to a FAC. It is important to have a body of freight experts available to bounce ideas off of as a freight program is developed. A formalized FAC provides staff with access to this type of expertise. In addition, if the committee is desig- nated formally by the MPO, it will have the same level of input and political clout as other com- mittees. Specific accomplishments or progress will be necessary to keep the committee engaged in the process. Step 6. Hold initial kickoff meeting and define roles and responsibilities. MPO staff should hold an organizational meeting for the appointed or designated FAC members. This meeting should define roles and responsibilities, which will impact frequency of meetings as well as spe- cific activities undertaken to support the MPO freight program. Step 7. Meet regularly to provide input to freight program development. The committee should meet regularly to address its defined roles and responsibilities. Regularly does not mean fre- quently. The term “regularly” is used to imply that the committee commits to meet on an ongoing 3-62 Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas

basis to ensure the freight program advances. For some MPOs, this will translate into annual meetings to review needs and projects. Other MPOs may require monthly or quarterly meetings to support a more advanced and intensive freight program. The committee and MPO staff should be flexible from year to year to ensure that the freight program focus is current and relevant. Common Issues and Potential Solutions An effective outreach program faces many obstacles. The following table identifies some of the more common issues that hinder private sector freight stakeholder participation and strategies that can be used to address these concerns: Common Issue Potential Solution Differing planning horizons. Private sector freight stakeholders often consider the public transportation planning process to be too long and cumbersome to warrant their attention, choosing instead to focus on short-range opera- tional and profit goals. Personnel turnover in the private sector. Interest by stakeholder firms is often dependent on individual interest. Industry turnover can have a negative impact on ongoing participation. Time constraints. Time constraints of the private sector freight industry hinder the ability to fully commit to the public transportation planning process. Proprietary issues. Private sector freight stake- holders often worry about protecting company/ client trade secrets and information that could affect a firm’s competitiveness, as such they limit the amounts and kinds of information shared. Integrating Freight into MPO Activities 3-63 Create quick-fix projects. Creating early success stories is a critical success factor to securing freight stakeholder interest. This generally involves identifying and delivering early, quick-fix projects that establish program success. Projects meeting quick-fix criteria often consist of maintenance-type projects (e.g., addi- tional turn lanes, widening lane shoulders, traffic signal timing, etc.) that can be completed within a short time and without major funding requirements. Because MPOs do not have direct control over these resources, they must solicit them from the appropriate agency (state, county, or city) to support this strategy. Focus stakeholder outreach efforts on firms and individuals with long-term and strategic commit- ments to the community. Target firms include those with company headquarters and major operations located within the region. Such firms are likely to ensure that replacement personnel are provided when necessary. Target individuals include leaders within the freight industry that have demonstrated interest in community activities. Development of a regional freight profile can help identify these individuals. Such individuals are likely to continue participation in the process even if they leave current firms. Hold focused meetings and outreach events. MPOs must make sure that freight stakeholder meetings are held in a time efficient manner and produce tangible results. The success of initial stakeholder meetings is a critical success factor in encouraging ongoing partici- pation. Conducting efficient, effective freight meet- ings requires significant amounts of pre-planning and preparation, usually with MPO personnel assuming an organizational role. Understand and respect competitive concerns. All MPO freight data collection efforts must acknowl- edge and address privacy and confidentiality concerns in all stakeholder communications. MPOs should be sure of the kind of data they require before making requests of the private sector. In many cases, direct observations of traffic activities (e.g., truck counts, etc.) are just as useful as specific freight shipment data.

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TRB's National Cooperative Highway Research Program (NCHRP) Report 570: Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Sized Metropolitan Areas explores how freight policy, planning, and programming processes can be most effectively designed, initiated, and managed in metropolitan areas of these sizes. The report examines lessons learned from experiences in small- and medium-sized metropolitan areas that resulted in more effective consideration of freight issues in policy, planning, and programming decisions.

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