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Linking Community Visioning and Highway Capacity Planning (2012)

Chapter: Chapter 5 Considering Communities

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Suggested Citation:"Chapter 5 Considering Communities." National Academies of Sciences, Engineering, and Medicine. 2012. Linking Community Visioning and Highway Capacity Planning. Washington, DC: The National Academies Press. doi: 10.17226/14580.
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Suggested Citation:"Chapter 5 Considering Communities." National Academies of Sciences, Engineering, and Medicine. 2012. Linking Community Visioning and Highway Capacity Planning. Washington, DC: The National Academies Press. doi: 10.17226/14580.
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Suggested Citation:"Chapter 5 Considering Communities." National Academies of Sciences, Engineering, and Medicine. 2012. Linking Community Visioning and Highway Capacity Planning. Washington, DC: The National Academies Press. doi: 10.17226/14580.
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Page 39
Suggested Citation:"Chapter 5 Considering Communities." National Academies of Sciences, Engineering, and Medicine. 2012. Linking Community Visioning and Highway Capacity Planning. Washington, DC: The National Academies Press. doi: 10.17226/14580.
×
Page 39
Page 40
Suggested Citation:"Chapter 5 Considering Communities." National Academies of Sciences, Engineering, and Medicine. 2012. Linking Community Visioning and Highway Capacity Planning. Washington, DC: The National Academies Press. doi: 10.17226/14580.
×
Page 40
Page 41
Suggested Citation:"Chapter 5 Considering Communities." National Academies of Sciences, Engineering, and Medicine. 2012. Linking Community Visioning and Highway Capacity Planning. Washington, DC: The National Academies Press. doi: 10.17226/14580.
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36 C h a p t e r 5 Introduction Visioning offers communities the opportunity to express a desired future quality of life. Understanding, measuring, and communicating the concept of quality of life is an important aspect of a visioning process. Transportation is just one of the many factors and variables that shape quality of life and com- munity livability. The relationship between transportation decisions and community context is complex, and discussion is often limited to the impacts, costs, or benefits of improve- ments. In contrast, visioning offers the opportunity to under- stand better how transportation systems may shape the preferred future of a community, whether through urban form, livability, or economic competitiveness. To this end, visioning processes employ innovative tools and techniques to measure existing community conditions, forecast likely conditions, and track progress toward reaching the desired future based on a selected set of shared goals and values. This chapter provides an organizing framework to help the prac- titioner begin considering communities within a visioning process through the use of tools, techniques, and indicators to describe community context and quality of life. A number of existing processes and established practices may be useful in considering and establishing quality of life values, including community impact assessment and indirect cumulative effects practices. The use of performance indica- tors also can be an effective tool related to quality of life within visioning processes. Strategic guidance on indicator selection and sample measures also are discussed here to help practitioners best employ indicators within the framework of the model vision process. Existing research on the relationship between transporta- tion and quality of life is available in an annotated bibliogra- phy included in Appendix C. In addition, a description of the available resources and tools to identify and address quality of life concerns are summarized. The tools and techniques described in this chapter also are available through the inter- active TCAPP website. assessing Community Quality of Life Understanding how transportation decisions may affect communities begins with identifying quality of life consider- ations. The term “quality of life” is a simple concept for the citizen to discern because it represents the sum of his or her collective daily experiences. If asked specifically about their individual quality of life, most people could provide specifics, and potentially a rating. However, the term is not as straight- forward for transportation professionals assessing quality of life concerns within decision-making processes. Defining quality of life for a group of people is challenging because the concept is largely driven by both broad commu- nity values and individual perceptions, and is intertwined with a variety of factors. Within visioning and transportation planning processes, this challenge is typically overcome by enabling stakeholders to identify common community val- ues, which can be organized within categories of quality of life considerations. Defining community values is often an early product of public involvement opportunities such as workshops, town hall meetings, or online discussions. These values may then later be associated with perfor- mance indicators and measures that best communicate the concept, and allow community values to be carried forward throughout a visioning process. For example, values may inform the selection of indicators, which are then used to assess alternative futures and later gauge progress toward achieving the vision. A sampling of quality of life consideration categories and possible community values is described in Table 5.1. Values provide a framework to begin considering communities within a vision. The terms used here are not comprehensive, but they are representative of potential quality of life value statements that may be developed during a visioning exercise. Several established practices assess the connection between transportation and quality of life considerations. Within trans- portation project planning and development, community Considering Communities

37 impact assessment (CIA) has become accepted terminology to describe the process used to evaluate the effects of trans- portation decisions on quality of life. This process includes an examination of not only direct effects but indirect and cumulative effects (ICE). The sections below provide addi- tional background on these terms. Community Impact Assessment CIA is defined as a “process to evaluate the effects of trans- portation actions on a community and its quality of life” (U.S. Department of Transportation, FHWA 2011a). CIA is an iterative process that raises awareness and understanding of both positive and negative effects of proposed actions on the human (social and economic) environment. CIA uses data analysis as well as community interaction to enable informed transportation decision making. This process is distinct from public involvement in that it relies on data analysis to provide a picture of the community, and then solicits additional comment and insight from the public based on that data. The assessment should include all items of importance to people, such as mobility, safety, employ- ment effects, relocation, isolation, and other community issues. Information developed early in the process can sup- port the development of alternatives, inform choices on major design concepts, and assist with other aspects of deci- sion making. Community impact assessment involves four steps: • Gather existing community information from secondary sources. (What major projects have occurred or are planned? What is the accident history and level of service on road- ways? Where are environmentally sensitive areas?) • Map available community data (e.g., schools, churches, fire, police, and shopping) for presentation to the public. • Compile a list of elected officials, staff of participating agencies, interest groups, community leaders, and resi- dents that may be affected by the project. Start building working relationships and knowledge of the area. • Analyze available data and present it to the public, asking them to confirm and add to your information (Center for Urban Transportation Research et al. 2012). The CIA process is a means to develop an understanding of a community’s context, which relates directly to the early steps in preparing for the vision. Data developed for com- munity profiles can be framed as a set of indicators for later use in assessing alternative scenarios, creating and communi- cating the final vision outcome, and tracking the perfor- mance of implementation. CIA is closely related to CSS practices for transportation planning and project development. Both practices are consid- ered specific to transportation and represent relatively focused efforts, when compared with visioning processes. For the trans- portation practitioner, previous agency experience with CIA and CSS may help inform the agency’s involvement in a vision- ing process. Indirect and Cumulative Effects FHWA and other federal agencies are responsible for address- ing and considering direct, indirect, and cumulative impacts in the National Environmental Policy Act (NEPA). The regu- lations define the impacts that must be addressed to satisfy the requirements of the NEPA process. Direct effects are caused by the action and occur at the same time and place. Indirect effects are caused by the action Table 5.1. Quality of Life Categories and Associated Community Values Category Potential Community Goal or Value Economic competitiveness Local businesses are competitive, with opportunities for growth. A mix of jobs is available for all income and education levels. Environmental stewardship Air and water resources are healthy for residents, wildlife, and ecosystems. Natural resources are managed for multiple uses and future generations. Transportation and mobility Access to daily needs (live, work, shop, play) is convenient and reliable. A variety of choices are available for moving people and goods. Public health, safety, and security Health care is affordable and accessible. Well-maintained recreation facilities promote physical activity. Social and cultural resources Opportunities exist for civic engagement and social networking. Historic and cultural resources are preserved and enhanced. Community development Development supports community character and aesthetics. A mix of housing of all types and for all income levels exists. Governance and public services Democratic processes engage citizens. Infrastructure and public services are efficiently managed.

38 and occur later or farther removed but are still reasonably foreseeable. Indirect effects may include induced changes in land use, population density, and related effects on air, water, and other natural systems. Cumulative impact is the impact on the environment, which results from the incremental impact of the action when added to other past, present, and reasonably foresee- able future actions regardless of what agency undertakes other actions. Cumulative impacts can result from individ- ually minor but collectively significant actions taking place over a period of time. Consideration of indirect and cumulative effects is an important element within the visioning process because many goals expressed by communities concerning potential futures are indirectly related to transportation projects. The ICE analysis framework can be useful in evaluating how dif- ferent futures perform against the selected performance indi- cators. This can aid with scenario-planning exercises that help visioning participants see what would happen under alterna- tive futures. The framework is also beneficial in facilitating the trade-off dialogue between stakeholders and the practitio- ners or decision makers. Table 5.2 provides examples of the relationship between sample public perceptions, community goals, performance indicators, and possible project effects. Additional information and selected indicators are avail- able in Appendix C. Defining Community Indicators Performance measurement is used frequently by transporta- tion agencies to improve understanding of the outcomes of transportation system investments, and to provide account- ability for decisions. The same principles of collecting and monitoring data can be used in a visioning process to support several key activities: providing a baseline of conditions, illustrating future trends, assessing alternative futures, and judging progress on implementation of goals and objectives. The terms measures and indicators are often used inter- changeably and are employed differently by agencies, academics, and practitioners. For the purposes of this report, the terms are defined as follows: • Measures are quantitative or qualitative data used to describe a condition. By themselves these measures are value neutral because they do not reflect an intended direc- tion of progress. Examples include vehicle hours of delay for a particular corridor; or the number of housing units within a designated distance of a proposed right-of-way. • Indicators are quantitative or qualitative data used to pro- vide information on how well a vision is achieving desired goals. Indicators are chosen to reflect community values, quality of life considerations, and other context variables that allow practitioners and stakeholders to assess whether the community is headed in the preferred direction. Exam- ples include the proportion of municipalities adopting the vision into comprehensive plans, or change in conserva- tion and recreation lands accessible to population centers. Figure 5.1 illustrates the activities supported by perfor- mance indicators and how they relate to the Vision Guide’s activity areas. The Vision Guide is based on a process that begins by look- ing at trend analysis of where a community is, forecasts the implications of specific projects and policies, and then tracks progress toward a goal. Each of these efforts relies on the pro- vision of contextual, value-based information. Measures and indicators can be selected to track those data points that reflect the conditions of chosen highest value in a community (e.g., safe streets around schools, transit access to regional medical centers). These same indicators can be used to assess commu- nity effects under different scenarios, and will then provide benchmarks of current conditions or desired future points from which to measure the progress and performance of the vision. Benchmarks and performance indicators used to track vision commitments may then be used to refresh the original community goals, completing a cycle centered on the vision- ing process. Chapter 8 (Tracking Commitments) discusses the implementation of the vision outputs in more detail. Table 5.2. Indirect and Cumulative Effects Perception of Project Effects Community Goals Performance Indicators Project Effects Measured by Practitioner More traffic congestion • Improve safety • Improve commute time • Vehicle miles traveled (VMT) growth as a ratio of population growth • Commute costs • Direct: Increased traffic • Indirect: Decrease in pedestrian safety • Cumulative: Auto-oriented development Decrease in property values • Provide a mix of housing choices • Enhance community character • Change in location and balance of available jobs and housing • Change in property values • Direct: Acquisition of property • Indirect: Noise or aesthetic impacts • Cumulative: Redevelopment of properties to undesirable land uses

39 Selecting Performance Indicators The process of selecting performance indicators that reflect quality of life considerations can create an objective commu- nication framework between practitioner and stakeholder. Utilizing indicators can facilitate consensus building by mov- ing participants beyond intangibles to something they can see and understand, and elevate dialogue above conflicts result- ing from different values and priorities to discussion that reveals underlying issues. Using performance indicators within the context of a visioning process offers a way to test possible futures against one another to see which will best deliver livability and qual- ity of life goals expressed during the vision. There are several important questions to consider when selecting community indicators: • What are the community characteristics and issues of importance? • How might agency and community goals be related? • What data and resources are available? • Can data points be clearly understood and communicated? • Do the data provide meaningful insights or basis for comparisons? As part of the research for this project, a table of commu- nity indicators was created to support the Vision Guide. Table 5.3 provides sample objectives for each category and a sample measure for each objective. The full table is included in Appendix C. The use of indicators within visioning processes provides the means for the practitioner to communicate the impor- tance of policy and planning decisions with stakeholders. As noted above, the selection of indicators that are clear, com- prehensive, meaningful, and readily understood will help tell a story and better enable stakeholders to compare and con- trast the impacts of future policy choices and investment decisions. Figure 5.2 illustrates these principles from the ONE BAY visioning effort in Tampa Bay, Florida. ONE BAY began its visioning process by conducting values surveys of residents that illustrated the importance of travel choices, environmental preservation, and energy conservation. This initial research and subsequent public meetings and workshops informed scenario-development activities and, ultimately, the choice of indicators used to depict differ- ences among those futures. The indicators used include vehicle miles traveled, acres of impacted wetlands, and average household energy electrical usage. Scenarios were modeled and data developed, which were then simplified and made clear for use in public scenario comparison guides and outreach materials. As described above, and as illustrated in the following chapter on applying quality of life considerations within the Vision Guide, the use of performance indicators is relevant through much of a vision process. The actual indicators and utilization of measures may change but should remain rooted in the community values and goals established early in a process. Within TCAPP, the sections titled Considering Communities describe how indicators may be used within relevant activity areas, and provide links to tools and resources to help practitioners effectively bring community consider- ation to visioning. application within the Vision Guide Community context tools and performance indicators pro- vide useful input to the Vision Guide. The following sections provide guidance on how context tools and indicators can be used to define community context, develop baseline con- dition and trend information, assess alternative scenarios, inform the selection of preferred futures, and track progress toward that future. TCAPP offers the information on this component area, with additional web links to relevant online resources. Preparing for the Vision During this phase, the practitioner should document the community’s unique context, including considerations and Figure 5.1. The role of performance indicators within the Vision Guide. Determine Existing Conditions (What has been done?) (Where are we now?) Establish Goals (What is important?) (Where do we want to be?) Predict Futures (Where are we going?) Measure Progress (How will we stay on track?) (What have we accomplished?) (How to maintain our vision?)

40 Table 5.3. Community Quality of Life Indicators Quality of Life Category Potential Community Goal or Value Sample Measure Economic competitiveness Local businesses are competitive, with opportunities for growth. Employment growth relative to state and nation A mix of jobs is available for all income and education levels. Per capita income of residents, by industry Environmental stewardship Water and air resources are healthy for people and ecosystems. Percent of water bodies meeting regulatory standard and number of air quality warning days Natural resources are managed for multiple uses and future generations. Percent of resource management plans with sustainability guidelines Transportation and mobility Access to daily needs (live, work, shop, play) is convenient and reliable. Commute time and cost between population centers and employment centers A variety of transportation choices are available for moving people and goods. Transportation system extent, transit ridership, and logistics costs Public health, safety, and security Health care is affordable and accessible. Percent of uninsured households and proximity to health care facilities Available recreation facilities promote physical activity. Number of recreations within a half-mile radius of schools Social and cultural resources Opportunities exist for civic engagement and social networking. Volunteerism rate, by age Historic and cultural resources are preserved and enhanced. Number of buildings on national register of historic places Community development Development supports community character and aesthetics. Percent of total building permits issued within city limits Mix of housing of all types and for all income levels exists. Transportation and housing affordability index Governance and public services Democratic processes engage citizens. Voter registration rate Infrastructure and public services are efficiently managed. Local government outcome performance measurement Source: ONE BAY Vision, Tampa, Florida. Figure 5.2. Scenario assessment with community indicators.

41 community values that aid in understanding and identifying quality of life goals. Visioning exercises are best suited to focus on community interests and needs that align closely with quality of life considerations (see Table 5.1). Context helps identify what is important to communities and ensures that a full range of indicators are chosen to reflect livability goals. Establishing these principles and priorities during the preparing phase will create an important foundation for the subsequent phases. What Has Been Done? Scanning prior studies, plans, and documents for data sources and existing measurement programs will help form the foun- dation of a baseline conditions analysis. Although the exact indicators used throughout the process may change, this activity may help identify possible data sources and provide options for synergies among partner and stakeholder agency performance measurement tracking efforts. What Is Important? Once a set of core issues has been established, an initial set of preferred indicators can be selected. This list will likely be informed, but not limited to, those identified in earlier activities. Documenting likely outcomes using measures may help reduce conflict among stakeholders further in the pro- cess, guide the scope of work, and assist in establishing early objectives. Creating the Vision Quality of life concerns should be present and considered throughout many of the activity areas within this phase for two main purposes: to create a baseline scenario and to inform the development of futures under consideration. Where Are We Now? Compiling and communicating information on a commu- nity is an entry point for almost any visioning process. Data sources may have been identified during the previous phase. Information may include quantitative data in the form of sta- tistics, inventories, audits, and geographic information, or qualitative data in the form of interviews with community leaders or public opinion and values surveys. The purpose is to provide a starting point for the issues and values that will be the focus of the visioning process. Providing a basis for judgment is important to helping participants engage fully in the trade-offs, alternatives, impacts, and potential futures assessed later in the process. Indicators should be based on community values and intended to convey statements of direction, value, quality, or progress. Where Are We Going? Previously selected indicators may provide a framework for trend analysis of likely futures given a set of policy choices. Providing information on probable trends helps participants assess choices and determine preferences. Historic and pro- jected data may be used to help frame problem statements, determine priorities, and develop community indicators. Where Do We Want to Be? Data should be used here to compare the trend analysis with those of a different set of program and policy selections that will likely lead to a distinct future. The data will help ground the ideas of the future vision and provide critical input to the next activity. Implementing the Vision For the practitioner, this activity track focuses on identifying specific actions, roles, and responsibilities to advance the vision into reality. Indicators are critical during this phase to help monitor the progress and provide guidance for adjust- ments necessary to maintain the vision over time. How Will We Stay on Track? Reporting progress toward the vision is critical to judging results and establishing priorities for implementation. A measurement process should reach agreement among stake- holders on the indicators to be reported, responsibilities for data collection, and a period of consistent measurement. It is important for the practitioner to select from indicators previously identified that can best capture the effects and anticipated changes resulting from implementing the vision. These metrics should communicate both process steps, such as adoption of the vision by local governments, and out- comes, such as building permits aligned with the principles of the vision. What Have We Accomplished? Continuing to monitor, measure, and report the status of implementation or progress toward the vision is a powerful tool for documenting the impact of the vision, legitimizing continued efforts, and adjusting priorities when necessary. How Will We Maintain Our Vision? Ongoing data collection can provide indication about how the vision is being realized over the implementation period. Feedback is critical to refocusing the vision to achieve the established goals and objectives.

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TRB’s second Strategic Highway Research Program (SHRP 2) Report S2-C08-RR-1: Linking Community Visioning and Highway Capacity Planning explores community visioning efforts, identifies steps and activities that might be considered when engaging in visioning, and highlights the links between vision outcomes and transportation planning and project development processes.

The report also presents a model—the Vision Guide—that is a blueprint for preparing, creating, and implementing a visioning process. As part of the project that produced Report S2-C08-RR-1, a companion web tool was also developed. The web tool, Transportation—Visioning for Communities (T-VIZ), is the interactive version of the Vision Guide.

Appendixes to the report, which are available only in electronic format, are as follows:

• Appendix A: Case Study Summaries

• Appendix B: Considering Communities

• Appendix C: Stakeholder Outreach Resources

• Appendix D: Commitment Tracking

An e-book version of this report is available for purchase at Google, iTunes, and Amazon.

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