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Linking Community Visioning and Highway Capacity Planning (2012)

Chapter: Chapter 8 Tracking Commitments

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Suggested Citation:"Chapter 8 Tracking Commitments." 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 8 Tracking Commitments." 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 8 Tracking Commitments." 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 62
Suggested Citation:"Chapter 8 Tracking Commitments." 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 63
Suggested Citation:"Chapter 8 Tracking Commitments." 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 63
Page 64
Suggested Citation:"Chapter 8 Tracking Commitments." 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 64
Page 65
Suggested Citation:"Chapter 8 Tracking Commitments." 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 65

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59 C h a p t e r 8 Introduction Implementation of a visioning process is as important as the development of the vision itself. A source of frustration for many communities is that after developing a shared vision, implementing agencies proceed with a business-as-usual approach that trivializes the selected preferred future. For example, a transportation agency may fail to carry through commitments made during visioning to project develop- ment, design, or construction activities. For the purpose of this project, the term “commitment” refers to any action or process a partner agency agrees to complete as a result of the vision. This includes the ongoing monitoring of perfor- mance indicators. There are a variety of reasons why a transportation agency may fail, either in appearance or in actuality, to honor commitments. Often it is difficult to develop commitments that are specific enough to be verified without additional documentation and ongoing dialogue. For instance, com- mitments to investigate or attempt mitigation action, to coordinate with resource agencies, or to take some action contingent upon external events all require ongoing com- munication with the community and additional documen- tation, if an agency is to demonstrate action on a commitment. Or, a commitment may appear not to be honored if the vision produces a long-term objective that may not remain consistently important to implementing agencies as they deal with shorter-term priorities and requirements and periodic changes in leadership. Sometimes the challenge may be organizational. For example, staff responsible for reviewing the transportation impacts of a separate devel- opment proposal or approving a permit for new access, or even designing and engineering new facilities, may not realize that these applications do not support the aims of the shared vision. A transportation agency also may be relying on partners to follow through on project support commitments. A project may involve multiple jurisdictions and agencies, with distinct leadership, planning processes, time frames, objectives, and requirements. For example, a vision may require initial action by a local government to amend comprehensive plans or zoning practices to ensure compatible land uses adjacent to a transportation corridor, before a DOT can honor a commit- ment. Or the vision may include transportation system goals and commitments that require intense coordination among a DOT, MPO, transit agency, and local government. Elected and appointed leadership of agencies and governments may change multiple times before the vision is implemented, and new leaders may not be familiar with or support the vision. The process of handing off vision implementation responsi- bility then becomes critical. If the partner agency does not follow through, the transportation agency may have limited recourse to ensure that the conditions for the vision and related projects remain in effect. In spite of these challenges, best practices can be used as the basis of an effective, performance-based community commitment tracking process. Several of the case studies developed for this project feature successful commitment tracking elements. Further, independent of visioning efforts, transportation agencies in a number of states have implemented successful commitment tracking systems and approaches that carry through from long-range planning to design and construction. These have lessons relevant to implementing a vision. A common theme in the examples of commitment track- ing is that commitments must be explicitly recorded and reported, and there should be periodic review of the degree to which an agency is meeting its commitments. Implement- ing a robust, performance-based process for tracking com- mitments can help increase the likelihood that commitments made will be honored. Equally important, a process can help build trust between the transportation agency, other part- ners, and the community that is instrumental in successfully implementing the vision. Tracking Commitments

60 review of existing tracking practices A review of existing practices was performed to characterize experiences with commitment tracking and to identify ele- ments of previous efforts that could be incorporated in a model tracking process. The review included the case studies developed for this project, as well as a comprehensive litera- ture review. The literature review covered the commitment tracking processes of 15 DOTs, and it also reflects survey results for a number of additional agencies. The findings from this literature are included in Appendix D. The following sections summarize existing practices described in the case studies, detail additional practices identified through the review, and provide a summary of best practices and issues identified. Case Study Summary Several of the case studies incorporate aspects of commit- ment tracking. Full case study summaries are included in Appendix A. Notable aspects related to commitment tracking from the case studies are detailed here. Arizona SR 179 The visioning process included formation of advisory panels that consulted on project design details, resulting in a Needs- Based Improvement Plan that informed the design. Results of the visioning process were documented on a project website. Atlanta 2020 A set of 22 benchmarks was established based on the vision- ing effort. Historic data and specific measures were identified for benchmarks, and progress was tracked on vision initia- tives for approximately five years. However, specific commit- ments and actions were not identified through the visioning or subsequent processes, and tracking was discontinued. CDTC New Visions This effort did not include a formal commitment tracking process. However, the visioning process resulted in projected budgets for various investment categories in the MPO’s Transportation Improvement Plan, which the MPO regularly monitors for consistency with vision targets. Idaho Transportation Futures This effort included an Implementation Strategy Workshop to address specific strategies for obtaining stakeholder buy-in and commitment and maintaining momentum. I-90 Snoqualmie Pass As part of this effort, WSDOT made several specific commit- ments related to the project that were documented in the environmental impact statement and record of decision for the project. WSDOT also committed to maintaining a project website to notify the public on project progress. New Hampshire CTAP Following the initial visioning process, work was performed to evaluate the program and make recommendations for improved communication among partners. Status reports were prepared documenting progress of the programs devel- oped through the visioning effort, detailing budget expendi- tures, planned versus actual progress, and program schedules. Commitment Tracking Models The case studies and literature provide a number of examples of commitment tracking approaches in use among transpor- tation agencies. The examples presented here differ in scope and approach, but for the purpose of summarizing existing practices, examples may be classified within the following general categories: static commitment lists, ongoing commit- ment monitoring, and overall performance monitoring. Static Commitment Lists Static commitment lists consist of commitment listings result- ing from a visioning exercise or project development effort, but they lack a formal process for ongoing review of fulfill- ment. The widespread use of green sheets for listing project commitments is an example of this type of approach. Of the case studies, the Arizona SR 179, I-90 Snoqualmie Pass, and Virginia Route 50 visioning efforts resulted in lists of commit- ments that subsequently were incorporated in project devel- opment. The practices of the Indiana and New Jersey DOTs described in the literature review provide further examples. Making a list of commitments is an important first step in commitment tracking. However, ideally, a commitment track- ing process would address additional aspects of the tracking process, such as monitoring of commitment fulfillment, and specifying how commitments should be resolved. The exis- tence of a commitment list often serves to motivate agencies to fulfill commitments. To the extent that many commitment lists include environmental commitments in legally binding environmental documents, the implied threat of litigation may serve as a very real motivation for an agency to fulfill its commitments. An approach based on compiling a list of com- mitments is most appropriate for cases in which responsibility is clearly delineated and other mechanisms already are in place for ensuring fulfillment.

61 Ongoing Commitment Monitoring Commitment monitoring is a comprehensive approach to commitment tracking that establishes a set of commitments and defines a process for monitoring fulfillment over time. Typically, the organization charged with fulfilling the commit- ment will have the most information and the most immediate stake in tracking the commitment. However, other parties may want and need to be involved in reviewing and tracking com- mitment progress. Of the case studies, the New Hampshire CTAP case provides the best example of an ongoing commit- ment monitoring approach. In this example, the visioning process resulted in a set of 12 initiatives, and periodic reviews were held by CTAP, at least for the first year following the visioning effort, to review progress on each initiative. Many of the state examples described in the literature include a monitoring component. For instance, the systems used in Kentucky, Indiana, Maryland, Virginia, and Washington all support ongoing monitoring. Establishing ongoing monitoring implies the need for cer- tain elements that may or may not be addressed in a process that relies on static commitment lists. First, a commitment must either be fairly specific, or translated into specific actions, to enable monitoring. Second, specific responsibilities must be assigned, both for monitoring the commitments and fulfilling them. Third, a timeline must be established for monitoring and fulfillment. For instance, an agency might set deadlines for each commitment and establish a review process, or review project commitments as specific project milestones. These additional elements are needed for institutionalizing the mon- itoring process. They are expected to be particularly valuable for monitoring commitments made outside the formal envi- ronmental process, such as for high-level commitments made independent of a specific project during visioning, or for ongo- ing commitments that extend beyond the life of a construction project. Thus, the model tracking process described later in this chapter incorporates these and other elements intended to help institutionalize the commitment tracking process and integrate it within the a vision process. Overall Performance Monitoring Visioning processes often precede project development and result in high-level commitments that do not relate to specific projects. These can be established through an adopted perfor- mance indicator program. Although many indicators are tied to specific project activities, it can be difficult to translate a vision into a specific set of commitments. Further, one can argue that the success of the vision should be judged in the context of the overall performance of the transportation sys- tem over time, and how it supports the community values, rather than whether any given commitment is fulfilled. With this perspective, the Atlanta 2020 and Idaho Transportation Futures efforts both established a set of performance measures that should be monitored over time, rather than a specific set of commitments. Performance monitoring is a valuable tool, independent of visioning. Ideally, agencies would implement performance monitoring separately from visioning, and any commitments recommended through a visioning effort would be incorpo- rated into an agency’s existing performance management initiative. Ideally, a visioning effort would identify target per- formance levels for the transportation network and result in commitments on the part of visioning participants to mon- itor performance of the system. If a commitment tracking process is to be successful, it should be institutionalized into agency practice, rather than treated as a one-time effort. Potential Barriers to Implementation Agencies interested in implementing commitment tracking processes face a number of potential barriers. The most sig- nificant barriers include: • Inertia: In any agency, the path of least resistance is typically to abide by the status quo. Any change, however well inten- tioned, is bound to face resistance and skepticism. Over- coming this inertia often requires high-level support and demonstration that changing the system will yield benefits. • Finite resources: Agency staff are hard-pressed to find the time and other resources to accomplish their existing responsibilities. Allocating staff time or resources for pro- cess and system development represents a challenge for many agencies. • System integration challenges: Agencies are burdened with multiple competing, possibly conflicting, system and pro- cess improvements, each of which requires significant inte- gration with other processes. It simply is not practical to implement all the changes at once that an agency may desire, even absent resource limitations. Environmental stream- lining, implementation of new project tracking systems, per- formance measurement initiatives and GIS integration efforts all may provide opportunities that a commitment tracking effort could leverage, or insurmountable barriers to getting a new effort under way. • Inability to achieve consensus: Implementing commitment tracking requires consensus, both within an agency and with resource agencies and other partners involved in the process. Reaching consensus on the details of a new pro- cess or system can require significant time and effort. • Lack of a champion: Ultimately, high-level support in the form of a committed champion is needed to overcome the challenges described here. If an effort lacks such an indi- vidual, or loses its champion to staff changes or competing priorities, then efforts to implement a new commitment tracking process may be stalled or redirected.

62 Expected Benefits of Commitment Tracking Supplementing visioning with a commitment tracking pro- cess represents an additional complication to completing a vision. Nonetheless, the potential benefits of implementing commitment tracking are significant, and extend beyond the visioning process. Enhanced Visioning Process With an effective commitment tracking process, stakeholders will have increased confidence in the results of the visioning process and an increased commitment to establishing and acting on a shared vision. Improved Agency Accountability Commitment tracking demonstrates that an agency respects its community and honors its commitments. This creates improved accountability for the agency among stakeholders, generating increased trust and more productive interaction with other agencies, community groups, and the public. Streamlined Agency Processes Identifying, meeting, and reviewing commitments requires significant time and energy on the part of transportation agencies, resource agencies, and other stakeholders. Institut- ing improved processes and systems has been demonstrated to help streamline agency business processes, remove delay, and help agencies deliver transportation services more efficiently. Fostering a Stewardship Model A common theme in the transportation community is the need for shifting from a model in which environmental, community, and other concerns with a compliance mind-set are seen as barriers to overcome, to a model in which such concerns are recognized as integral to the transportation system. Commit- ment tracking is a tool that helps bridge the gap between com- pliance and stewardship, by translating a shared understanding of a transportation agency’s commitments into an actionable set of steps for an agency to implement. Better Results Implementing commitment tracking in conjunction with visioning is needed to improve the results a transportation agency delivers. By helping agencies and stakeholders pro- duce a better vision, the process should yield transportation enhancements that better reflect society’s needs. To the extent that commitment tracking streamlines agency processes, transportation agencies should be able to leverage the process to deliver system improvements in a more timely and cost- effective manner. Model Commitment tracking process A model commitment tracking process has been developed to track commitments made during a visioning exercise in the implementation phase. The process is intended to apply to all forms of commitments, including environmental or commu- nity, and commitments by an agency to review performance. The process was developed assuming a single organization with overall responsibility for maintaining and tracking com- mitments. In practice, a visioning effort may result in commit- ments on the part of multiple organizations. In this case, one agency might be assigned overall responsibility for commit- ment tracking, or the commitments resulting from a visioning effort may be subdivided by agency as an initial step. Figure 8.1 illustrates the steps within the commitment tracking process. A description of each process step follows. Establish Commitments The initial step is to use outcomes from the visioning process to establish commitments. Visioning outputs may include a final statement, decision-making principles, or illustrative future scenario maps. Additional effort may be needed to translate these materials into a set of commitments, and to gain consensus on which organizations are responsible for fulfillment. For instance, if the visioning effort results in a set Establish Commitments Assign Roles and Responsibilities Communicate Commitments to Stakeholders Monitor Commitment Activities Report on Commitments Update Priorities/Revise Commitments Refresh Vision Figure 8.1. Model commitment tracking process.

63 of performance goals for the transportation system, this step would involve defining a commitment to measure and report on those performance goals. If the vision establishes a set of quality of life considerations, this step could involve select- ing indicators that monitor progress toward ensuring com- munity values. Assign Roles and Responsibility In the next step, a specific individual, office, or other stake- holder should be assigned responsibility for completing each of the commitment actions. A champion should be identified who is in charge of tracking commitments at the agency level. The champion monitors and reports the progress of commit- ments, actively communicates with commitment owners, and coordinates with stakeholders. Communicate Commitments to Stakeholders This step leverages stakeholder relationships established throughout the vision process. Stakeholders should be made aware of the plan for vision implementation through the com- mitments that have been made. They should be told who is accountable for fulfilling the commitments, and be provided with updates as commitments are completed or adjusted. Monitor Commitment Activities In this step the lead convener, or implementation lead respon- sible for reviewing commitments, monitors commitment progress. This activity involves reviewing the list of commit- ments and specific actions, and analyzing any progress made since the last update. Report on Commitment Performance Periodically, the lead party responsible for monitoring com- mitments should generate a report on commitment perfor- mance for all stakeholders. The reporting period should be agreed upon by the vision lead and stakeholders. Reports should list ongoing commitments, commitment status, actions for the commitment, due dates for the actions, and any over- due actions. Update Priorities and Revise Commitments Reporting commitment progress may identify areas in which commitments are not being met or a commitment needs to be modified. For instance, if construction of a new facility is completed, but there are ongoing commitments related to maintenance of the facility, it may be necessary to trans- fer responsibility for the commitment to another party. In this step, champion and stakeholders will review the report on commitment performance and determine whether any commitments require revisions. After commitment revisions are identified, the lead or other stakeholders revise any commitments as needed. The exact details of this process will depend on the structure agreed upon between the champion and stakeholder. In some cases, the organization responsible for tracking the commitments may be responsible for determining when revisions are needed. In other cases, the champion may have a watchdog role and not have authority to revise commitments, or may work with a steering committee on any the details of any revisions. What- ever the details of this process step, the end result is that revi- sions to a commitment are proposed and approved. Refresh Vision After the commitments have been revised, the vision lead will adjust the vision outputs as necessary. The data that have been gathered during the commitment monitoring process will indicate how any goals or objectives may need to shift. For example, a community could face new development pressures or opportunities that were not present when the vision process was originally completed. These new conditions may provide opportunities for economic growth but also could threaten to change a community’s character. Depending on existing lead- ership and changes that may have to be made, the vision refresh may need to include a stakeholder outreach. After the vision has been refreshed, the commitment tracking process should be revised accordingly. The process then loops back to the monitor commitments step, and begins anew. application within the Vision Guide Commitment tracking is relevant at each of the three phases of the Vision Guide. Consideration of the indicators, data, and commitments that might be relevant during the Prepar- ing the Vision phase will provide a solid foundation and con- sistency throughout the vision process. Preparing for the Vision This first phase of the Vision Guide sets the stage for develop- ing the vision and for commitment tracking of vision imple- mentation. Implementation of a commitment tracking process involves reviewing what has been done, what is important, and even who is involved. The agency already may have experience with commitment tracking for plans, programs, and specific projects. This experience can be applied to vision commit- ment tracking. The only difference is that vision tracking may be done at a slightly higher and broader level. Also, the various

64 stakeholders may be able to offer certain goals or actions they would like tracked. The most significant step in preparing for the vision may be to develop the overall approach to commit- ment tracking. What Is Our Approach? Agencies may have more commitment tracking experience at the project level and somewhat less at the plan level. This experience may be applicable to vision tracking, or at least be beneficial from a lessons-learned standpoint. The vision lead should spend time during this activity area mapping out a process that will provide inputs to the commitment track- ing process as the vision moves forward. A commitment tracking process implemented in support of visioning should be comprehensive, and should not be limited to only those commitments made during visioning. During this activity area, all partner agencies can explore any existing commit- ment tracking frameworks that may be relevant to the vision process. In particular, other commitments made through the agency environmental and project development processes should be included in the commitment tracking process. Creating the Vision Once a vision’s goals have been developed, the agency should begin to develop performance indicators that will monitor and track implementation of actions. Those responsible for implementation need to be involved in developing perfor- mance indicators and establishing commitments for each step in this phase. How Will We Get There? This area of the vision process should list activities necessary to accomplish the vision, such as goals and actions. These will be used to develop performance indicators and commitment tracking processes. For example, if the vision includes the goal of enhancing the environment, then one of the actions might involve implementing an ecological approach to mitigation. Actual implementation of this action may require changing agency policies, modifying legislation, or increasing fund- ing for advance mitigation of entire watersheds, as opposed to project levee mitigation. Therefore, implementation of such an action may need to track a number of indicators, such as agency policy making, legislative activity, and budget initia- tives for mitigation. Implementing the Vision The model commitment tracking process discussed previously provides a framework and related activities for implementing the vision. Figure 8.2 illustrates how the model commitment tracking process interfaces with the Vision Guide. Each step within the commitment tracking process is associated with one of the activity areas. The text below provides the Vision Guide context for the model commitment tracking process. How Will We Realize Our Vision? The initial step in the process is to use the output from the visioning process to establish a set of commitments. Addi- tional effort may be needed to translate outcomes into a set of commitments, and to gain consensus on what organiza- tions or agencies are responsible for commitment fulfillment. How Will We Stay on Track? Performance indicators for each action should provide a schedule for implementation, which is then monitored. Some actions will take longer to implement than others. Actions that require new legislation may take a while. Assign Roles And Responsibility A specific party should be assigned responsibility for com- pleting each of the commitment actions. Also, no later than this step, a champion should be identified who is in charge of tracking commitments at the agency level and who monitors and reports progress and actively communicates and coordi- nates with stakeholders. CommuniCAte Commitments to stAkeholdeRs This step leverages stakeholder relationships established throughout the vision process. Stakeholders should be made aware of the plan for vision implementation through the com- mitments made. They should be told who is accountable for fulfilling the commitments, and be provided with updates as commitments are completed or adjusted. What Have We Accomplished? Progress on implementing the vision, goals, and actions should be monitored on a regular basis. Given that visions are normally implemented over the long term, the actions may be monitored and reported on an annual or semiannual basis. Commitments at the project level, such as environmental commitments, may be reported on more often. A periodic review system should be established that includes a list of commitments indicating what already has been implemented, what is in progress, what is overdue, what is planned, and if there have been any modi- fications to the commitment. monitoR Commitment ACtivities In this step, the lead convener or implementation lead respon- sible for reviewing commitments monitors commitment progress. This activity involves reviewing the list of commit- ments and specific actions, and analyzing any progress made since the last update.

65 RepoRt on Commitment peRfoRmAnCe Periodically, the lead responsible for monitoring commit- ments should generate a report on commitment performance for all stakeholders. The reporting period (e.g., biannual or annual reports) should be agreed upon by the vision lead and stakeholders. Reports on commitment performance should list ongoing commitments, commitment status, actions for the commitment, due dates for the actions, and any over- due actions. How Do We Maintain Our Vision? As described previously, implementation of the vision and its specific goals and actions should be monitored regularly, so that any necessary adjustments will be recognized and action taken. Likewise, the action may be modified to ease imple- mentation, or the schedule may be adjusted. For example, if the action requires new legislation, the language in the pro- posed legislation may need to be modified to make it more acceptable, or the proposed budget adjusted. A person must be identified who is responsible for monitoring implementa- tion and notifying stakeholders of progress and status on a regular basis. updAte pRioRities And Revise Commitments The report on commitment progress in the previous activity may identify areas in which commitments are not being met or a commitment needs to be modified. Upon reviewing the commitment performance report, the process champion and stakeholders will determine whether any commitments require revision. After commitment revisions are identified, the lead or other stakeholders will revise any commitments as needed. RefResh vision After the commitments have been revised, the vision lead will adjust the vision outcomes as necessary. Data gathered dur- ing the commitment monitoring process will indicate how goals or objectives may need to shift. Establish Commi tment s Assign Ro le s and Responsibi lities Co mm un ic at e Co mmitme nt s to St akehol der s Moni to r Commitm en t Activities Repor t on Commitment Performance Up dat e Pr io ri ti es/ Revise Co mmitme nt s Re fr esh Vision Re fr esh Vision Figure 8.2. Relationship between implementing phase and model commitment tracking process.

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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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