Best Practices to Enhance the Transportation-Land Use Connection in the Rural United States (2007)

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17 Public involvement is vital for any planning process for its ability to educate, solicit ideas and feedback, and generate a sense of ownership in the process to carry forward into implementation of the plan. This chapter outlines a proven framework for process design, describes tools for effective planning processes, and summarizes key principles for effective planning and implementation. Persons interviewed in nearly every case study emphasized the importance of process design, public engagement, communications, and participation for effective planning and community development. The case studies also illustrate many diverse tools, techniques, and approaches for public involvement. Cutler-Orosi (CA) underwent a 5-day intensive, multi-workshop, multi-lingual community design charrette that involved music, food, and daycare to enhance participa- tion and interaction. Hayden (CO) held an intensive evening workshop using GIS-based, 3D-scenario visualization tools and real-time preference polls. Collaboration with ongoing active citizen groups proved successful with the Sedona (AZ) “Active Citizens for Transportation Solutions,” and Unity (ME) “Unity Barn Raisers.” On a regional scale, the Northwest Vermont Planning Project process involved bringing five regional planning commissions together to think together about the relationship between land use and transportation and the relationship between job locations and housing. Context-Sensitive Solutions: A Proven Process Framework The design and facilitation of an effective planning process involve as much art as science, but basic steps are common to successful projects. Initial activities center on understanding local issues, identifying stakeholders, and clearly defining the core problem and key issues. Well-designed projects rely on community-generated criteria to evaluate and select alterna- tive solutions and include clear documentation of the steps taken to consider issues and reach decisions. C H A P T E R 5 Facilitating Effective Planning A useful guidebook for these steps is the “Thinking Beyond the Pavement” approach discussed in NCHRP Report 480: A Guide to Achieving Best Practices in Context-Sensitive Solutions.14 The CSS approach inspires, within an open and interdisciplinary framework, transportation plans that fully consider aesthetic, historic and scenic values, along with safety and mobility. In addition to providing a sound basis for planning and designing individual transportation projects, the CSS approach also helps communities develop and implement long-term, comprehensive, sustainable solutions to a wide variety of land use and transportation issues. A “shorthand” way of summarizing the key factors that distinguish this type of holistic approach is as follows: • Listen to the People: Foster meaningful public involvement from a wide variety of people and interests. Communicate in various ways, using new and traditional technologies. • Listen to the Land: Consider environmental factors as determinants in decisions, rather than impacts to be mitigated. • Listen to Each Other: Use an appropriately structured, interdisciplinary, decision-making process that clearly respects and responds to public input and supports the iterative nature of thoughtful planning. • Look at All Possibilities: Assess a wide variety of options, being fully open to new ideas and perspectives while stay- ing grounded in the particular place, time, and situation at hand. Increasing Local/State Dialogue Through Rural Consultation Rural consultation is an ongoing process of dialogue between state DOTs and non-metropolitan local officials and a recent requirement enacted by TEA-21. Rural consultation is intended so that “one party confers with another identified

party in accordance with an established process and, prior to taking action(s), considers that party’s views and periodically informs that party about action(s) taken. The actual practice of rural consultation differs from state to state. In general, each state must develop and implement a documented process for local official input, the process must be separate and discrete from existing public involvement processes, and periodically seek feedback from local officials regarding the process.15 Tools for Effective Planning Processes Five specific tools used for effective land use and trans- portation planning have been identified through this research. These tools, or approaches, are scenario planning, visioning, regional planning, corridor planning, and rural consultation. These tools often incorporate elements of other planning processes and techniques. Each process needs to be designed for the unique characteristics of a community and the specific challenges it faces. The tools outlined below are not a com- prehensive list of process tools, but they have proven effective. Scenario planning allows a community to develop a better understanding of the alternatives available for the future of their community. In a typical scenario planning process, the community participates in a series of workshops that starts with an analysis of existing conditions and identification of community needs and goals. The community then uses their needs and goals as the framework for brainstorming potential future development scenarios. Each of these scenarios is then analyzed to determine and compare the land use impacts, transportation efficiency, and financial feasibility. The results are then presented to the community to allow for richer discussion with full consideration of the implications of each scenario. Scenario planning techniques have been enhanced by recent advances that use 3D visualization software that allows real-time interactivity with participants. The Hayden (CO) case study is one example where the use of 3D visioning software helped achieve community consensus on future growth and transportation preferences. Visioning can be used as an early component of the scenario planning process or as a standalone tool. Essentially a consensus-building process, visioning is an invaluable tool to use early in a project to bring all interested and affected parties to the table and establish a framework of goals for the task at hand, whether that may be a comprehensive planning process, the development of design guidelines, or prioritiza- tion of transportation investments. A design charrette, a common method for reaching consensus on visioning or scenario planning, is an interactive series of collaborative events engaging design professionals and a diversity of local public, staff, and officials. Through these interactive sessions, they create a broad, community-based vision for their specific design, growth, transportation, or other planning challenges. The Cutler-Orosi (CA) case study, an excellent example of a successful and intensive design charrette, was considerately tailored to engage a small, rural community with many mono-lingual Spanish-speaking families. Regional planning provides an opportunity to coordinate decision-making to ensure that the objectives of adjacent communities are all being met and allows an opportunity to pool resources, whether they may be financial, data, or knowledge. Local land use and transportation decisions often have an effect well beyond the borders of a single community, which gives regional planning the potential to solve integrated challenges facing multiple communities. Regional planning can involve a few localities or many counties, depending on the needs of the region. Planning tasks can include compre- hensive planning, project prioritization, development of design guidelines, or corridor planning. Hutchinson (MN), Northwest Vermont, and the Western Piedmont (NC) all illustrate examples of approaches to regional planning. Corridor planning is one of the most concrete tools available to involve new partners in addressing the use and function of roads that span multiple jurisdictions. Decisions with an effect on state and county road corridors have a ripple effect throughout the corridor and should not be made without care- ful consideration and discussion with regional partners. Corridor planning includes the design of the roadway itself (e.g., the number of lanes and the presence of pedestrian and cycling facilities), transit services spanning communities, land use along the corridor, development design, access manage- ment, and streetscaping. An example of both regional planning for multiple corridor studies is the Western Piedmont region of North Carolina. There the Western Piedmont Council of Governments (WPCOG) developed three corridor studies along these two major routes, which resulted in a corridor plan designed to promote safety, traffic efficiency, aesthetics, economic development, and compatible residential uses. On a local scale, the Sedona (AZ), Burlington (IA), Lincoln City (OR), and Edgartown (MA) illustrate processes that involved corridor or main street context-sensitive design. Key Principles for Successful Land Use and Transportation Integration The following summary of four key principles for effective planning and implementation were drawn primarily from focus group discussions, survey responses, and case studies (see Appendixes B, C and D). Form collaborative partnerships: Developing partner- ships with other communities, businesses, and state and regional agencies has proved to be key to maximizing the 18

limited resources available in many communities. Partner- ships can lead to data sharing, pooling of financial resources, policy development, education, and training. Developing partnerships is a collaborative way to improve cooperation and establish economies-of-scale to reduce the challenges to implementation. See the Burlington (IA), Sedona (AZ), Unity (ME), and Cutler-Orosi (CA) discussions for specific examples of local community groups forming different types of collaborative partnerships. Focus on quality of life and sustainability: Transportation and land use decisions are central to community livability and vitality. These decisions are often made without a full appreciation for their implications and can harm a community just as often as they may help. All transportation and land use decisions should be evaluated for their effects on community aesthetics, safety, compatibility, and natural/cultural/historic resources. Transportation and land use decisions can be used to improve travel choices, social interaction, community cohesion, civic pride, affordability, and equity. These factors are important for revitalizing the local economy or for attract- ing new economic engines. Improving the quality of life of residents was a major factor for residents of Moss Point, Mississippi, while environmental sustainability was a driving force in Northwest Vermont. Invest in public involvement and education: Holding an open dialogue with the community over transportation and land use decisions is a way to educate the community, receive valuable feedback, and gain community support for project implementation. Case study examples of communities hold- ing open dialogue or education sessions are Hayden (CO), Sedona (AZ), and the Moss Point (MS) and Cutler-Orosi (CA) charrette processes. Foster strong local leadership: In some communities, the key may lie in one person or a small group of people with an attractive vision for the community and the tools to sell that vision to the public and bring it to implementation. The success stories behind nearly every case study written can point to one or just a few catalyzing individuals who champi- oned the project or were crucial to the process. The citizens of Unity (ME) became increasingly enthusiastic after a string of local accessibility improvements were accomplished. Their local leadership was strongly supported by the local govern- ment and empowered by enabling state legislation. Rural communities face many common challenges to integrating land use and transportation such as securing funding and resolving conflicts with neighboring jurisdic- tions and regional and state agencies. Paying for mainte- nance and preservation of existing infrastructure is a serious challenge to rural communities and can preclude the ability to upgrade or expand transportation systems. Difficulty in obtaining funds to support transit services and pedestrian infrastructure is especially challenging. Rural areas can also struggle with navigating the time-consuming bureaucracy of many grant programs, keeping some funds out of hand due to the lack of available staff or guidance. Many localities are looking toward developers and other private investment sources as a means of financing needed infrastructure improvements. As is the case in many communities—urban or rural— dealing with neighbors and different levels of government can lead to opposing goals or other conflicts. The challenge is to pursue opportunities for productive dialogue with the various partners involved or parties affected by planning decisions. Effective communication and partnership can ensure that these interactions improve the planning process rather than creating barriers that must be overcome. Other potential challenges for rural communities include the availability and expertise of planning staff, the ability to involve the public in decision-making, or the lack of political will to implement innovative planning decisions. 19