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TR N EW S 28 8 SE PT EM BE Râ O CT O BE R 20 13 22 The authors are with the U.S. Department of Transportationâs Volpe National Transportation Systems Center, Cambridge, Massa - chusetts. Schwarzer is Environmental Protection Specialist, and Peckett is Community Planner. Developing and maintainingtransportation infrastructurecan have a negative impact on ecological resources. State depart- ments of transportation (DOTs) his- torically have employed a variety of techniques to avoid, minimize, and mitigate these impacts on a project- by-project basis. The techniques may have satisfied regulatory requirements but did not always provide the great- est environmental benefits. At the same time, the environmen- tal review and permitting processes often raised issues that were perceived as major causes of project delay. Con- cern for ecosystem protection, along with legislative and policy initiatives to foster an ecosystem-based approach while streamlining environmental processes, led an interagency steering team to collaborate to write Eco- Logical: An Ecosystem Approach to Developing Infra- structure Projects.1 The interagency team shared a vision that collab- orative infrastructure development and delivery processes that are more sensitive to eco- logical resources could reduce the time frames for environmental review and per- mitting. Eco-Logical encourages all part- ners involved in infrastructure planning, design, review, and construction to use the flexibility in regulatory processes to achieve this vision. The Eco-Logical pub- lication puts forth a framework for inte- grating plans across agency and political boundaries and endorses ecosystem-based mitigationâan innovative method of addressing infrastructure impacts. Several current initiatives are institu- tionalizing or adapting the Eco-Logical approach, as states and regions seek tech- nical assistance to streamline the trans- portation process and to achieve better environmental outcomes. The evolution of the Eco-Logical approach and examples of its early successes provide background and insights. How It Began In the late 1990s, Montana DOT and the Montana Division Office of the Federal Highway Administra- tion (FHWA), along with resource and regulatory agency partners, anticipated an increase in develop- ment throughout the state and were concerned about the vanishing opportunities to conserve natural resources. Like many other states at that time, Montana pri- marily performed environmental mitigation for trans- portation projects on an individual project basis, generally at the permitting stage. This approach did not always yield the greatest environmental benefit and did not promote long-term ecosystem sustain- ability. To address these issues, agencies in Montana formed a partnership known as the Integrated Trans- portation and Ecological Enhancements for Montana (ITEEM), which sought to develop an ecosystem- scale approach to infrastructure development. In 2002, in response to the work in Montana and to the release of Executive Order 13274, Environ- mental Stewardship and Transportation Infrastruc- Eco-Logical in Practice Implementing an Ecosystem-Based Approach, Streamlining Environmental Processes for Transportation Projects J U L I A N N E S C H W A R Z E R A N D H A L E Y P E C K E T T Environmental Sustainability in Transportation A bear and her cubs cross North Cascades Highway in Washington State. In 2002, an interagency team comprising state and federal represen ta - tives created a frame - work for infrastructure development that is sensitive to animal and other habitats. Eco-Logical: An Ecosystem Approach to Developing Infrastructure Projectswas developed to facilitate collaboration between agencies in the environ - mental review process. P H O TO : W A SH IN G TO N S TA TE D O T 1www.environment.fhwa.dot.gov/ecological/ecological.pdf.
TR N EW S 288 SEPTEM BERâO CTO BER 2013 23 ture Project Reviews,2 an interagency steering team from eight federal agencies and several state DOTs convened to create a framework for ecosystem-scale infrastructure development.3 The group sought âan enhanced and sustainable natural environment,â and maintained that ânecessary infrastructure can be developed in ways that are more sensitive to terres- trial and aquatic habitats.â4 The team also believed that the transportation project development and delivery processes could be streamlined, saving time and resources. As a result, the team developed an approach that pro- moted early coordination to establish environmental commitments and to apply the flexibilities allowed under the regulations. In April 2006, leadership from the federal steer- ing team agencies signed the resulting document, Mitigation projects along the Jordan River in Utah were based on Eco- Logical. 2http://ceq.hss.doe.gov/nepa/regs/eos/eo13274.pdf. 3The team consisted of representatives from the U.S. Army Corps of Engineers, the Bureau of Land Management, the Environmental Protection Agency, FHWA, the Fish and Wildlife Service, the Forest Service, the National Oceanic and Atmospheric Administration, the National Park Service, Volpe National Transportation Systems Center, Knik Arm Bridge and Toll Authority, North Carolina DOT, Vermont Agency of Transportation, and Washington State DOT. 4From Eco-Logical: An Ecosystem Approach to Developing Infrastructure Projects, 2006. PH O TO : C O R Y M A Y LE TT Success in Montana I TEEM yielded new and important positiverelationships among agencies in Montana. Participants have contacted each other to dis- cuss environmental issues and mitigation opportunities for ITEEM and non-ITEEM proj- ects. These personal relationships have helped to erase historical biases or miscon- ceptions that some agency staff held about other agencies. Staff in participating ITEEM agencies have begun to appreciate each otherâs missions and core responsibilities. According to one partic- ipant, âITEEM helped build more trust and credibility; it erased misconceptions.â Another participant noted, âRelationships are built between people, not between agencies. ITEEM opened our eyes to what was possible and took away assumptions about agencies.â Some participants anticipated the relation- ships would make future interagency collab- oration âmore effective and efficient.âa awww.environment.fhwa.dot.gov/ecological/ITEEM/ study.asp.
TR N EW S 28 8 SE PT EM BE Râ O CT O BE R 20 13 24 Eco-Logical: An Ecosystem Approach to Developing Infrastructure Projects. The recognition by agency leaders signified a joint commitment to promote and support Eco-Logical. What Is Eco-Logical? The Eco-Logical approach calls for early collabora- tion among transportation, resource, and regulatory agencies to establish joint environmental priorities and identify critical resources. After establishing pri- orities, federal, state, tribal, and local partners can work to sustain or restore ecological resources on an ecosystem scale in developing infrastructure proj- ects, using the flexibility within regulatory processes. To help agencies tap this flexibility, Eco-Logical sets forth a framework for integrating plans and data across agency and political boundaries and for iden- tifying a regionâs ecological priorities. The frame- work proposes that infrastructure and resource agen- cies collaborate before transportation planning to incorporate data at the ecosystem scale, identify crit- ical ecological resources, and establish joint envi- ronmental priorities. Transportation agencies then can use jointly established priorities in planning and decision mak- ing to avoid negative environmental impacts and to undertake mitigation when impacts are unavoidable. During the transportation design and permitting phases, early decisions and commitments should ensure faster permitting times and better environ- mental outcomes. Signatory Agency Programs Since 2006, representatives from each of the federal steering team, or signatory, agencies have held meet- ings to identify opportunities to support each other, as well as state and local entities, in implementing the Eco-Logical approach. In 2011, the signatory agencies undertook an effort to identify the programs within each agency that closely related to Eco-Logical. Each agency noted that although its leadership supported the con- cept of Eco-Logical, in many cases the approach had been modified to meet agency needs. Each agency was able to identify at least one program that shared the same founding principles as Eco-Logical. The initial outcome of this effort was a document titled Eco-Logical Successes.5 After its publication, the signatory agencies decided to assemble more in- depth descriptions of key agency programs, includ- ing on-the-ground applications. Since 2011, FHWA, in collaboration with the signatory agencies, has developed three additional volumes of Eco-Logical Successes, all available on the FHWA Eco-Logical website.6 Eco-Logical Grants and Resources The FHWA Office of Planning, Environment, and Realty established the Eco-Logical grant program in 2007, providing approximately $1.4 million to 15 projects selected to test an ecosystem-scale approach to infrastructure development.7 Project activities included transportation and environmental plan- ning, data collection and analysis, environmental mitigation, public education, and prioritization of natural and cultural resources. Applying Eco-Logical Through an FHWA Eco-Logical grant project, the HoustonâGalvestonArea Council (H-GAC) created a geographic information system (GIS) tool to identify areas for environmental resource priority. H-GAC is a regionwide voluntary association of local governments in the 13-county Gulf Coast Planning region of Texas. Since the completion of the tool, which comprises more than 12,000 mapped features covering six ecotypes, staffers have been drafting rec- ommendations for inclusion in the 2040 Regional Transportation Plan. The recommendations are developed in coordination with the Transportation Policy Council, which provides policy guidance and coordination of trans- portation planning within the region. The Conservation Fund, a not-for-profit organization active in land con- servation across United States, is applying a similar methodology to expand the toolâs functions in five counties outside of H-GACâs regional boundaries. Local and regional foundations are funding the project. H-GAC plans to integrate the Conservation Fundâs work into the online tool, including a methodology that will show the monetary benefits of ecological services. 5www.environment.fhwa.dot.gov/ecological/successes/ index.asp. 6www.environment.fhwa.dot.gov/ecological/eco_entry.asp. 7The grant program was funded by the Surface Transportation Environment and Planning Cooperative Research Program, FHWA Office of Planning, Environment, and Realty. Environmental resource priority areas can be identified with the HoustonâGalveston GIS tool.
TR N EW S 288 SEPTEM BERâO CTO BER 2013 25 Since 2007, FHWA has tracked the progress of the grants, developed annual reports summarizing find- ings, and provided recommendations.8 This year, FHWA worked with the grant recipients to identify the key requirements to achieve success in imple- menting Eco-Logical. The grant recipients agreed that the following four characteristics were most important: u Access to tools to advance Eco-Logical, u Adaptable organizational structure and flexible staff capacity, u Strong interagency partnerships, and u Technical and financial support for Eco-Logi- cal projects. To provide additional resources for stakeholders implementing Eco-Logical, FHWA initiated several additional communications, outreach, and research projects. Past projects have included research on the origins of the Eco-Logical approach in Montana and a peer exchange for the early implementers. Other ongoing activities that demonstrate FHWAâs commitment to assisting its stakeholders in putting Eco-Logical into practice include producing a monthly webinar series, developing and implementing a train- ing strategy, and creating a benefit assessment frame- work to assist FHWA in determining the economic benefit of applying the Eco-Logical approach. Eco-Logical and SHRP 2 The Transportation Research Boardâs second Strategic Highway Research Program (SHRP 2)9 has included two projects to develop the institutional and techni- cal processes needed to put the Eco-Logical approach into practice. The projects address a charge from Con- gress to develop methods that systematically integrate environmental requirements into the planning and design of new highway capacity. The SHRP 2 efforts produced a nine-step inte- grated Eco-Logical framework, along with the sup- porting scientific and technical processes and tools. The tools and processes are being introduced to the transportation and environmental communities as PH O TO : U SA C E A 2012 U.S. Army Corps of Engineers (USACE) Nashville District project diverted water from entering Greenbelt Lake to remove sediment. USACEâs Aquatic Ecosystem Restoration Program uses Eco-Logical. 8Eco-Logical grant program annual reports are available at www.environment.fhwa.dot.gov/ecological/eco_grant_ program.asp. 9SHRP 2 was authorized by Congress to address some of the most pressing needs related to the nationâs highway system. The Transportation Research Board administers the program under a memorandum of understanding with FHWA and the American Association of State Highway and Transportation Officials. For more information, visit www.trb.org/StrategicHighwayResearchProgram2SHRP2/ Blank2.aspx.
TR N EW S 28 8 SE PT EM BE Râ O CT O BE R 20 13 26 Implementing Eco-Logical and will become a part of the ongoing activities, initiatives, and research asso- ciated with FHWAâs ongoing Eco-Logical program. In September 2012, FHWA and the American Association of State Highway and Transportation Officials (AASHTO) met with a panel of stakehold- ers and experts and developed a plan to implement the Eco-Logical approach and the new SHRP 2 research through an implementation planning work- shop. The final version of the implementation plan recommends six strategies to promote the adoption of the Eco-Logical approach as part of routine busi- ness practices at state DOTs, metropolitan planning organizations, and federal and state resource and reg- ulatory agencies: u Educate agency leadership about the value and benefits of the ecosystem-scale approach; u Develop incentives or support for state and regional transportation agencies to adopt the Eco- Logical approach; u Provide technical assistance and peer learning opportunities to educate staff-level practitioners about Eco-Logical; u Develop a business case highlighting the time and cost savings associated with Implementing Eco- Logical; u Develop new tools and technologies that increase or enhance access to available data and sup- port interagency collaboration; and u Develop communications and outreach mate- rials to increase awareness about Implementing Eco- Logical and to facilitate information sharing among potential users. These strategies form the basis for the imple- mentation activities to be overseen and managed by FHWA and AASHTO. As a first step, FHWA and AASHTO initiated a selection process for funding through the first round of the SHRP 2 Implementa- tion Assistance Program. In May 2013, FHWA offered six lead adopter incentives of $200,000 to $250,000, for applicants already working to adopt Eco-Logical principles, and seven user incentives of approximately $25,000 each, for applicants to begin adopting Eco-Logical or to address a challenge in adopting the approach. After selecting the projects to be funded through the Implementation Assistance Program, FHWA and AASHTO began to pursue the other actions in the plan. FHWA will fold the implementation proce- dures into the Eco-Logical program as one of a suite of tools and efforts to ensure the nationwide adop- tion of the approach. National Initiatives The Eco-Logical approach has gained traction through major national policy and agency initiatives, including the Moving Ahead for Progress in the 21st Century Act (MAP-21) and Executive Order 13604: Improving Performance of Federal Permitting and Review of Infrastructure Projects. The inclusion of Eco-Logical in these initiatives is critical to main- streaming the approach nationwide. MAP-21 President Barack Obama signed MAP-21 into law on July 6, 2012. Many sections of the bill aim to stream- line elements of the surface transportation program consistent with the Eco-Logical approach. By apply- ing Eco-Logical, agencies will establish joint conser- vation priorities and mitigation opportunities well before project development, streamlining the envi- ronmental review and permitting processes. MAP-21 emphasizes early interagency coordina- tion and collaboration in the planning and environ- mental processes. Developing agency agreements for early coordination, as outlined in Section 1320, will Eco-Logical in Action Through an FHWA Eco-Logical grant proj-ect, the Thomas Jefferson Planning Dis- trict Commission (TJPDC) in Charlottesville, Virginia, developed a green infrastructure plan for the central Virginia metropolitan planning organization and local govern- ments. The TJPDC staff finalized a set of GIS maps ranking mitigation sites around the region on a detailed scale appropriate for project-level planning. Staff also created a âleast environmental cost analysisâ frame- work for developing alternatives in construc- tion projects. The input assisted in prioritizing transportation projects on the basis of poten- tial environmental impacts during the long- range transportation planning process. TJPDC has integrated the methodologies and maps from its Eco-Logical product into the regionâs long-range transportation plan, which is expected to be adopted in 2014. TJPDC continues to promote its Eco-Logical project among stakeholders, such as the Vir- ginia Departments of Environmental Quality, Forestry, and Transportation, and hopes to work with these agencies to use an ecosys- tem-scale approach in selecting mitigation sites. The Rivanna Trail in Charlottesville, Virginia. Existing and planned trails are among the cornerstones of the Thomas Jefferson Planning District Commissionâs green infrastructure plan. PH O TO : B O B TR A V IS , FL IC K R
TR N EW S 288 SEPTEM BERâO CTO BER 2013 27 provide a framework for partner agencies to set joint priorities and understandings for the expedient delivery of transportation and mitigation projects. The emphasis in MAP-21 on integrating informa- tion developed in planning into the environmental review process will ensure that these joint priorities are reflected in transportation project decisions. Eco-Logical supported the concept of âout of kind mitigationâ or âmitigationâconservation banking,â so that impacts to a wetland, stream, or habitat can be mitigated through the creation, restoration, or enhancement of similar wetlands, streams, or habi- tat within the same ecosystem. MAP-21 reempha- sizes a preference for this type of mitigation, as established under the 2008 Mitigation Rule. MAP-21 also encourages programmatic mitigation plans; when agencies establish these plans at an ecosystem or watershed scale, they achieve the Eco-Logical principles of early coordination and out-of-kind mit- igation. In the past, Eco-Logical was presented as a best practice that acted on flexibilities within regulations. The formal establishment of this approach through MAP-21 provides additional leverage and opportu- nities for state, regional, and local governments to adopt Eco-Logical. Executive Order 13604 Issued on March 22, 2012, Executive Order 13604 stated that federal permitting and review processes must be transparent, consistent, and predictable. The order aimed to hold agencies to performance goals by measuring the timelines for permitting and empha- sized the use of cost-effective review methods. The executive order advocated early interagency collab- oration, early consultation, and establishing shared agency prioritiesâconcepts closely aligned with Eco-Logical. To ensure implementation of Executive Order 13604, federal agencies were required to develop a federal plan and agency plans that committed to spe- cific actions to improve the infrastructure permit- ting and review process. Recognizing the similarities between the executive order and the Eco-Logical approach, FHWA and the other signatory agency partners sought to incorporate Eco-Logical into the federal plan and the agency plans. As a result, the fed- eral plan directly references Eco-Logical, and the U.S. DOT plan includes many FHWA initiatives related to Eco-Logical, including Every Day Counts, an initia- tive to expedite project delivery. Next Steps Eco-Logical began as a concept developed by a state, was cultivated at the federal level, and is now being packaged and delivered to all states, with financial incentives and technical support. The Eco-Logical approach stretches beyond a best practice and pro- poses a new way of doing business that will stream- line the transportation process and improve environmental outcomes. As the Eco-Logical approach matures, FHWA and its partners are working to provide support for states and regions that have adopted or are interested in adopting Eco-Logical. These opportunities are avail- able through the implementation of SHRP 2 and through the FHWA Office of Planning, Environment, and Realty. For more information, visit FHWAâs Eco- Logical website, www.environment.fhwa.dot.gov/ ecological/eco_entry.asp/. PH O TO : W A SH IN G TO N ST A TE D O T Children install native plants as part of a Washington State DOT mitigation banking project in Renton.