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Consideration of Environmental Factors in Transportation Systems Planning: Appendixes (2003)

Chapter: Appendix A: Strategic Environmental Assessment (SEA) and OECD Guidelines

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Suggested Citation:"Appendix A: Strategic Environmental Assessment (SEA) and OECD Guidelines." National Academies of Sciences, Engineering, and Medicine. 2003. Consideration of Environmental Factors in Transportation Systems Planning: Appendixes. Washington, DC: The National Academies Press. doi: 10.17226/22058.
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Suggested Citation:"Appendix A: Strategic Environmental Assessment (SEA) and OECD Guidelines." National Academies of Sciences, Engineering, and Medicine. 2003. Consideration of Environmental Factors in Transportation Systems Planning: Appendixes. Washington, DC: The National Academies Press. doi: 10.17226/22058.
×
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Suggested Citation:"Appendix A: Strategic Environmental Assessment (SEA) and OECD Guidelines." National Academies of Sciences, Engineering, and Medicine. 2003. Consideration of Environmental Factors in Transportation Systems Planning: Appendixes. Washington, DC: The National Academies Press. doi: 10.17226/22058.
×
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Suggested Citation:"Appendix A: Strategic Environmental Assessment (SEA) and OECD Guidelines." National Academies of Sciences, Engineering, and Medicine. 2003. Consideration of Environmental Factors in Transportation Systems Planning: Appendixes. Washington, DC: The National Academies Press. doi: 10.17226/22058.
×
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Suggested Citation:"Appendix A: Strategic Environmental Assessment (SEA) and OECD Guidelines." National Academies of Sciences, Engineering, and Medicine. 2003. Consideration of Environmental Factors in Transportation Systems Planning: Appendixes. Washington, DC: The National Academies Press. doi: 10.17226/22058.
×
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Suggested Citation:"Appendix A: Strategic Environmental Assessment (SEA) and OECD Guidelines." National Academies of Sciences, Engineering, and Medicine. 2003. Consideration of Environmental Factors in Transportation Systems Planning: Appendixes. Washington, DC: The National Academies Press. doi: 10.17226/22058.
×
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Page 10
Suggested Citation:"Appendix A: Strategic Environmental Assessment (SEA) and OECD Guidelines." National Academies of Sciences, Engineering, and Medicine. 2003. Consideration of Environmental Factors in Transportation Systems Planning: Appendixes. Washington, DC: The National Academies Press. doi: 10.17226/22058.
×
Page 10
Page 11
Suggested Citation:"Appendix A: Strategic Environmental Assessment (SEA) and OECD Guidelines." National Academies of Sciences, Engineering, and Medicine. 2003. Consideration of Environmental Factors in Transportation Systems Planning: Appendixes. Washington, DC: The National Academies Press. doi: 10.17226/22058.
×
Page 11
Page 12
Suggested Citation:"Appendix A: Strategic Environmental Assessment (SEA) and OECD Guidelines." National Academies of Sciences, Engineering, and Medicine. 2003. Consideration of Environmental Factors in Transportation Systems Planning: Appendixes. Washington, DC: The National Academies Press. doi: 10.17226/22058.
×
Page 12
Page 13
Suggested Citation:"Appendix A: Strategic Environmental Assessment (SEA) and OECD Guidelines." National Academies of Sciences, Engineering, and Medicine. 2003. Consideration of Environmental Factors in Transportation Systems Planning: Appendixes. Washington, DC: The National Academies Press. doi: 10.17226/22058.
×
Page 13
Page 14
Suggested Citation:"Appendix A: Strategic Environmental Assessment (SEA) and OECD Guidelines." National Academies of Sciences, Engineering, and Medicine. 2003. Consideration of Environmental Factors in Transportation Systems Planning: Appendixes. Washington, DC: The National Academies Press. doi: 10.17226/22058.
×
Page 14
Page 15
Suggested Citation:"Appendix A: Strategic Environmental Assessment (SEA) and OECD Guidelines." National Academies of Sciences, Engineering, and Medicine. 2003. Consideration of Environmental Factors in Transportation Systems Planning: Appendixes. Washington, DC: The National Academies Press. doi: 10.17226/22058.
×
Page 15

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A-1 APPENDIX A: STRATEGIC ENVIRONMENTAL ASSESSMENT (SEA) AND OECD GUIDELINES SEA DIRECTIVE The SEA Directive adopted by the European Parliament and Council in 2001 is one of the most important legislative initiatives regarding Strategic Environmental Assessments (SEAs) in the world. The purpose of the SEA Directive is to ensure that environmental effects of certain plans and programs are identified and assessed during the planning process. The requirements set forth in the Directive are to be integrated into existing procedures in Member States for the adoption of plans and programs or incorporated into new procedures. The Directive requires the preparation of an environmental report that identifies, describes, and evaluates the likely significant effects on the environment of implementing the plan/program as well as the identification of reasonable alternatives. Environmental Report Requirements The information to be contained in the environmental report includes (1): • An outline of the contents, main objectives of the plan or program and its relationship with other relevant plans and programs • Relevant aspects of the current state of the environment and likely evolution thereof without implementation of the plan or program • The environmental characteristics of areas likely to be significantly affected • Any existing environmental problems that are relevant to the plan or program including those related to any areas of particular environmental importance • The environmental protection objectives, established at the international, European Community or Member state level, which are relevant to the plan or program and the way in which those objectives or any environmental considerations have been taken into account • The likely significant effects on the environment, including such issues as biodiversity, population, human health, fauna, flora, soil, water, air, climatic factors, material assets, cultural heritage including architectural and archaeological heritage, landscape and the interrelationship between aforementioned factors • The measures envisaged to prevent, reduce and offset any significant adverse effects on the environment of implementing the plan or program • An outline of reasons for selecting the alternatives dealt with and a description of how the assessment was undertaken including any difficulties encountered in compiling the required information. • A description of the measures envisaged concerning monitoring of the implementation of the plan or program • A non-technical summary of the information provided under the above headings

A-2 In addition to the outline of report contents, general criteria for determining the likely significance of the effects on the environment of the plan or program are to be presented. Full contents of the SEA-Directive can be located online at: http://europa.eu.int/comm/environment/eia/sea-legalcontext.htm MANUAL ON SEA OF TRANSPORT INFRASTRUCTURE PLANS A recent landmark report by the European Council (EC) provides detailed guidance and methods for SEA for transportation infrastructure plans (2). The report examines the principles and processes of SEA, such as appropriate levels of planning (network, corridor, project), steps to conduct an SEA, and the methods of impact assessment for the transport sector. The Manual describes the main issues in SEA and gives practical suggestions for carrying out an SEA. Seven Steps in the SEA Process The Manual identifies and describes seven steps in the SEA process, focusing on their application in transportation infrastructure planning: • Screening → Determines whether an SEA is necessary • Scoping → Determines the issues to be included in an SEA • Impact Assessment → Assesses the impacts of a proposed infrastructure plan in comparison with the baseline situation and analyzes uncertainties • Review → Ensures that all the relevant impacts have been properly assessed • Integration into Planning and Decision-Making → Ensures that the SEA is fully taken into account in making the decisions • Implementation and Monitoring → Ensures that there is a mechanism for correcting unacceptable aspects of implementation • Consultation and Participation → Ensures that environmental authorities, other agencies and the public or non-governmental agencies participate throughout the SEA process, including review of the SEA report. The Manual also describes methods of forecasting the impact of transportation infrastructure plans on traffic flows and the environment and identifies ways to optimize the environmental effects of plans. It suggests that in the assessment and forecasting of environmental impacts, a distinction should be made between impacts on traffic flows, and environmental impacts on the global, regional and local scales. Useful indicators for assessing effects at these levels are discussed. Key Pointers for Carrying Out Effective SEAs Key pointers for carrying out an SEA identify include: • Setting clear targets for the SEA report • Setting up an interdisciplinary team • Ensuring good collaboration exists between the planning and environmental authorities • Enabling effective feedback to be made

A-3 • Providing sufficient time and resources to carry out public participation • Ensuring that the results of the evaluation are taken into consideration in the final decision SEA AND INTEGRATION OF THE ENVIRONMENT INTO STRATEGIC DECISION-MAKING The European Commission issued a report that examines the benefits, challenges and methods for integrating environmental factors into decisions concerning plans, policies and programs (3). The following sections describe key success factors gained from this study and recommendations for the effective implementation of SEA as well as for integrating the environment into decision-making. Key Factors in SEA Key factors identified for successful SEA include the following: • Legislative Support: The most successful SEA generally occurs where there is a legal obligation that requires it to be undertaken. • Transparency: SEA needs to be a transparent process that allows environmental considerations to be highlighted. • Early Consideration: Successful SEAs have occurred at the beginning of a planning process rather than at the end of a project development effort, and may serve as a catalyst for developing further guidance and training • Alternative Options versus Option Alternatives: Successful SEA assesses the impacts of alternative options rather than option alternatives • Public Participation: Widespread involvement of stakeholders, policymakers and the wider public is crucial for a successful SEA • Open Communication: A successful SEA is an active, participatory and education process for all parties, in that stakeholders are able to influence the decision maker, and the decision maker is able to raise awareness of the strategic dimensions of the policy, plan or program • Information Accessibility: A successful SEA involves wide use and dissemination of baseline and assessment information • High Quality Assessment: A successful SEA depends on high quality and rigorous application of assessment methodologies, whether qualitative, quantitative or both. • Systematic Process: An SEA needs to be a systematic process involving different institutions in a common reporting framework • Independent Review: An independent body that can review or audit the assessment process and content is needed to provide sufficient incentive to carry out an SEA in an accountable way. Recommendations for Effective Implementation of SEA Applying SEA at the most strategic levels of decision-making 1. Preliminary environmental assessments or simple policy appraisals can provide a useful starting point for a more extensive SEA

A-4 2. A flexible form of SEA is needed at policy-making levels, and existing strategic processes should be examined for compatibility to the SEA process 3. SEA should be promoted as a means of changing attitudes and culture within organizations and government departments 4. The scope of an SEA should not be unduly constrained, otherwise it will not be strategic 5. Effort should be concentrated on establishing appropriate communication processes and networks, and putting in place engines for change. Promoting effectiveness of integration 1. A tiered approach to an SEA should be adopted to help promote the integration of the environment into decision-making 2. Auditing, monitoring, and quality control should be an integral component of any SEA process 3. Effectiveness of integration should be measured in the long term, rather than simply based on short-term output performance measures. Public and stakeholder participation 1. A good SEA needs transparent and participatory processes and decisions 2. Stakeholders and the public should be encouraged to think as strategically as possible, to help avoid the ‘hijacking’ of the SEA by more parochial views SEA and Sustainability Appraisal 1. SEA and sustainability appraisal should be seen as complementary and not substitutes for each other 2. SEA can strengthen wider sustainability appraisal where it brings baseline information together with objectives-led assessment 3. The reasons for including certain socio-economic impacts within an SEA should be made explicit. Undertaking SEA 1. There should be a named, senior individual responsible for the co-ordination and delivery of any SEA and also a named individual responsible for the communication of any SEA process 2. Emphasis needs to be placed on ‘building the right team’ of experts in any SEA or wider appraisal 3. Greater effort is needed to improve the quality of baseline information against which policies and options can be assessed 4. Lessons should be learned from the implementation of the SEA Directive at plan and program levels for wider application to policies Guidance and training 1. Guidance and training is essential for successful SEA efforts agency or country wide

A-5 2. Mechanisms need to be developed within government departments and organizations to foster and retain ‘institutional memory.’ 3. Guidance should be developed by the European Commission for carrying out SEA at the most strategic policy levels. LESSONS LEARNED IN SEAS OF TRANSPORT CORRIDORS A recent publication, SEA of Transport Corridors: Lessons Learned in Comparing the Methods of Five Member States (4), analyzes five SEAs of multimodal transportation corridors and concludes with several valuable lessons. Consultation and Participation • Information sharing, consultation and participation are essential and will have the greatest positive impact when initiated at the earliest stages. • Consultation and participation should include all stakeholders and the public to ensure wide “buy in” to the solutions being proposed • The public and stakeholders need to be informed about the SEA process and the options being considered from the beginning of the process • Information needs to be presented clearly and simply in terms that are relevant to the stakeholders Scoping The scoping stage is viewed as the most critical stage in an SEA. It provides an opportunity to inform the stakeholders and obtain their views on objectives, indicators, initial alternatives and data availability. Scoping requires a decision on which themes, objectives and indicators are necessary and sufficient for the scale and level of the decision being made. Outlining Alternatives Alternatives identification is viewed as the step where SEA can make the greatest and most constructive contribution to sustainability and environmental protection. This stage was also found to be the most dynamic and intensive phase of the SEA process. Several important lessons learned in this stage include: • Identify alternatives while keeping in mind the overall objectives, which may include a mixture of environmental, socio-economic, and transportation-based objectives; • Consider both infrastructure and policy-type alternatives • Evaluate the business-as-usual scenario to highlight the sustainability implications of not taking action on strategic policy and infrastructure options • Coordinate the socio-economic, transportation feasibility and environmental assessments to identify alternatives that are desirable from a number of perspectives and that meet several objectives • Discuss alternatives with stakeholders and the public to help identify realistic options and reduce conflict at later stages

A-6 • Discuss alternatives with stakeholders and the public to help identify realistic options and reduce conflict at later stages • Identify and define options in an iterative process Assessing Potential Impacts In assessing potential impacts, geographic information systems (GIS) were widely used across the five studies: however, it should be noted that GIS and modeling are not always essential to provide adequate and sufficient information to decision-makers. The main advantages noted for the use of GIS include: • The ability to compare the potential impacts of different options against a set of environmental indicators • The ability to overlay different sets of geo-referenced information with data on traffic flows • The ability to manage and display considerable quantities of data using GIS-linked databases • The ability to present maps to decision-makers and the public during consultations Modeling and traffic forecasting were also viewed as key tools in undertaking an SEA to give results a level of robustness that allows stakeholders to understand the implications. The use of complex assumptions was inevitable, as was the need for transparency in formulating them. The assessment process included the consideration of economic implications of different alternatives to help provide a balanced picture when presenting results. Methods of conducting cost-benefit analyses were different, and not all approaches led to a monetary evaluation of the impacts. STRATEGIC ENVIRONMENTAL ASSESSMENT IN THE TRANSPORT SECTOR: AN OVERVIEW OF LEGISLATION AND PRACTICE IN EU MEMBER STATES A report by the European Union, SEA in the Transport Sector: An Overview of Legislation and Practice in Member States (5) provides a comprehensive assessment of current transport SEAs in the EU. The document reports on the results of a survey conducted of two groups of countries--those with legal requirements for SEA transportation policies, plans and programs; and those having practical experience, but no legal requirements for SEA in the transportation sector. The report found that the existence of legislation promotes consistency and greater influence of SEA studies. In addition to the benefits of early detection and mitigation of environmental effects, the SEA effort was found to provide a more efficient approach to both policy development and implementation. The report also identified as obstacles to SEA implementation the lack of expertise and inadequate institutional collaboration. The Trans-Pennine Corridor (TPC) study in the United Kingdom was one of the five pilot studies funded by the European Commission. Figure A-1 shows the main steps that were undertaken in this study. ENVIRONMENTALLY SUSTAINABLE TRANSPORT GUIDELINES The OECD Environmentally Sustainable Transport (EST) Guidelines were developed to provide a strategy for sustainable development and future-oriented policy making and

A-7 practice in the transport sector. The guidelines are based on an understanding of unsustainable transport trends, a definition of EST, and health and environmental criteria that are associated with sustainable development. In addition, the report identifies ten guidelines for achieving EST and provides explanations as to the application of the guidelines. The OECD EST Guidelines are presented in Table A.1. INDICATORS FOR THE INTEGRATION OF ENVIRONMENTAL CONCERNS INTO TRANSPORT POLICIES In 1991, OECD recommended that transportation/environmental indicators be developed to better facilitate decision-making at the national, international and global levels, and to integrate environmental concerns into transportation decision-making. The conceptual approach in developing sector indicators is outlined in (6). Indicators are proposed for three major themes: sector trends of environmental significance; environmental impacts of the transportation sector (with respect to pollution and natural resource use); and economic linkages between transportation and the environment. Indicators that have internationally comparable, comprehensive, and readily available data are presented in tabular and graphical form along with notes on their relevance to transportation and environmental policies, the conceptual base, and data sources. The indicators proposed for the integration of environmental concerns into transportation policies are presented in Table A.2. CANADA – SEA AND SUSTAINABLE TRANSPORT RESOURCES A 1999 Canadian Cabinet Directive on Environmental Assessment of Policy, Plan and Program (7) proposals requires an SEA when a proposal is submitted to an individual Minister or Cabinet agency for approval, and when implementation of the proposal may result in important environmental effects, either positive or negative. The Guidelines for Implementing the Cabinet Directive (8) were prepared to provide more detail on the process of conducting an SEA and in preparing the SEA report. The Cabinet Directive and the Guidelines can be accessed online for more information at: http://www.ceaa-acee.gc.ca/0011/0002/dir_e.htm How to Conduct Environmental Assessments of Policy, Plan and Program Proposals (9) is another guidance document to help in the preparation of SEAs in Canada. This guidance document discusses what must be done, why environmental assessments are required, who should be involved, when the assessment should be performed, how it should be carried out and where to get assistance. In addition, it provides a set of worksheets to use as a tool in analyzing and documenting the environmental effect of a policy, plan, or program. Six steps to completing an SEA for policy, plan and program proposals are defined as follows: Step 1: Determine the study approach. Step 2: Identify possible options for the policy, plan, or program. Step 3: Identify the likely environmental effect of each viable option. Step 4: Determine what can be done to mitigate negative effects and enhance positive effects. Step 5: Identify the potential environmental effects that remain after mitigation. Step 6: Document the results of the analysis. Prepared for Transport Canada to address a significant aspect of sustainable transportation, Performance Indicators for Environmentally Sustainable Transportation – A

A-8 Discussion Paper (10) reviews the current status of environmental indicator development and proposes a set of indicators for environmentally sustainable transportation. A set of 32 indicators, covering the topics of transportation spills, fossil fuel use, urban land use, climate change, urban air quality, noise, and water pollution, was developed. For these indicators, problems of relevance, measurability, and ease of understanding are identified. For more information on the proposed indicators, this paper can be located online at: http://www.tc.gc.ca/../envaffairs/english/sustainability/eperform.pdf REFERENCES 1. European Commission, Directive 2001/42/EC of the European Parliament and of the Council on the Assessment of the Effects of Certain Plans and Programmes on the Environment. Accessed at http://europa.eu.int/comm/environment/eia/sea- legalcontext.htm in July 2002. 2. European Commission, Strategic Environmental Assessment of Transport Corridors: Lessons learned comparing the methods of five Member States. Accessed at http://europa.eu.int/comm/environment/eia/sea-studies-and- reports/sea_transport2.pdf in July 2001. 3. European Commission, SEA and Integration of the Environment into Strategic Decision-Making. Accessed at http://europa.eu.int/comm/environment/eia/sea- support.htm in July 2001. 4. European Commission, Manual on Strategic Environmental Assessment of Transport Infrastructure Plans. Accessed at http://europa.eu.int/comm/transport/themes/network/english/bground_doc/index_e n.html in July 2001. 5. European Commission (2001a) Strategic Environmental Assessment in the Transport Sector: An Overview of Legislation and Practice in EU Member States, Accessed at http://europa.us.int/comm/environment/eia/sea-studies-and- reports/sea_transport.pdf in July 2001. 6. Organization for Economic Co-Operation and Development (OECD). EST- Environmentally Sustainable Transport Guidelines. Presented and endorsed at the international conference in Vienna, Austria, October 4th to 6th, 2000. Accessed at http://www.oecd.org/pdf/M00006000/M00006604.pdf in July 2002. 7. Canadian Environmental Assessment Agency. The 1999 Cabinet Directive on the Environmental Assessment of Policy, Plan, and Program Proposals. Accessed at http://www.ceaa-acee.gc.ca/0011/0002/dir_e.htm in July 2002. 8. Canadian Environmental Assessment Agency, Strategic Environmental Assessment: The 1999 Cabinet Directive on the Environmental Assessment of Policy, Plan, and Program Proposals, Guidelines on Implementing the Cabinet Directive, 2000, Accessed at http://www.ceaa-acee.gc.ca/0011/0002/dir_e.htm in July 2002. 9. Canadian Environmental Assessment Agency, Strategic Environmental Assessment at Environment Canada: How to Conduct Environmental Assessments of Policy, Plan, and Program Proposals, Prepared by the Environmental Assessment Branch, Environmental Protection Service, and National Programs Directorate. Feb. 4, 2000.

A-9 10. Marbek Resource Consultants. Performance Indicators for Environmentally Sustainable Transportation – A Discussion Paper. Submitted to Transport Canada. September 12, 1996. Accessed at http://www.tc.gc.ca/../envaffairs/english/sustainability/eperform.pdf in July 2002.

2. Present Situation Land use and transport policies Opportunities and constraints Travel demands and levels of service Problems --road --rail --bus 1.Setting Objectives Land use/transport integration Economy Accessibility Safety Environment 3. Future Situation Committed land use policies Committed transport system changes Travel demands and levels of service Problems --road --rail --bus 4. Consultations Problems and objectives Potential solutions 7. Options for sustainable development in the corridor Develop ideas Test and assess options Investigate packages and strategies 5. Assessment Framework Objective achievement Problem amelioration (both including environmental impacts Economy Value for money Equity Financial sustainability 6. Assessment: Tools and Methods Land use/transport interaction model Strategic environmental assessment Geographical information system Economic and financial assessments Engineering feasibility 8 Consultations: Improvement strategies 9. Recommendations for the preferred Environmental and Developmental Strategy Land use/transport interactions Investigate Funding Sources Develop implementation programmes Develop the environmental strategy Test potential solutions Agree to objectives Understand the situation

A-10 TABLE A.1: OECD ENVIRONMENTALLY SUSTAINABLE TRANSPORT GUIDELINES Guideline 1. Develop a long term vision of a desirable transport future that is sustainable for environment and health and provides the benefits of mobility and access Guideline 2. Assess long-term transportation trends, considering all aspects of transport, their health and environmental impacts, and the economic and social implications of continuing with business as usual Guideline 3. Define health and environmental quality objectives based on health and environmental criteria, standards, and sustainability requirements Guideline 4. Set quantified sector-specific targets derived from the environmental and health quality objectives, and set target dates or milestones Guideline 5. Identify strategies to achieve EST and combinations of measures to ensure technological enhancement and changes in transport activities Guideline 6. Assess the social and economic implications of the vision, and ensure that they are consistent with social and economic sustainability Guideline 7. Construct packages of measures and instruments for meeting the milestones and targets of EST. Highlight ‘win-win’ strategies incorporating, in particular, technology policy, infrastructure investment, pricing, transport demand and traffic management, improvement of public transport, and encouragement of walking and cycling; capturing synergies (e.g., those contributing to improved road safety) and avoid counteracting effects among instruments Guideline 8. Develop an implementation plan that involves well-phased application of packages of instruments capable of achieving EST taking into account local, regional, and national circumstances. Set a clear timetable and assign responsibilities for implementation. Assess whether proposed policies, plans and programs contribute to or counteract EST in transport and associated sectors using tools such as Strategic Environmental Assessment (SEA) Guideline 9. Set provisions for monitoring implementation and for public reporting on the EST Strategy; use consistent, well-defined sustainable transport indicators to communicate the results; ensure follow-up action to adapt the strategy according to inputs received and new scientific evidence. Guideline 10. Build broad support and cooperation for implementing EST; involve concerned parties, ensure their active support and commitment, and enable broad public participation; raise public awareness and provide education programs. Ensure that all actions are consistent with global responsibility for sustainable development. Source: (6)

A-11 Table A.2: Indicators for the Integration of Environmental Concerns into Transport Policies Source: (6)

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TRB’s National Cooperative Highway Research Program (NCHRP) Web-Only Document 77: Consideration of Environmental Factors in Transportation Skills Planning consists of the appendixes to NCHRP Report 541 of the same name, which examines procedures and methods for integrating environmental factors in transportation systems planning and decision making at the statewide, regional, and metropolitan levels.

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