3.4 Project Planning

Project planning should be coordinated with various local, regional and statewide plans and documents to ensure that the project complies with previously developed local, regional and statewide objectives. It is equally important during this stage to identify any additional studies that may be needed to ensure that the project achieves its goals and objectives.

3.4.1 Project Planning Partners

Local, regional and other state planning partners are a critical component in TxDOT’s integrated planning process. Depending on the project type and rigor, other applicable requirements should be determined and complied with. Examples of entities to coordinate projects with include but are not limited to:
  • MPO
    – Urbanized Areas (UZAs) (greater than census 50,000 population) are required to have an MPO. The MPO is the local decision-making body responsible for planning and coordinating a multimodal transportation system that facilitates high quality and efficient transportation development in the urban area. MPOs can provide information, studies, or analyses for portions of the transportation system located in metropolitan planning areas. The MPO may also function as the designated contact for rural plan development. A map of Texas MPOs can be found in the Statewide Planning Map. MPOs work with TxDOT to develop the TIP (see
    Section 2.6.1.2
    ). UZAs greater than census 200,000 population are designated as Transportation Management Areas (TMAs). TMAs are required to have a Congestion Management Process (CMP) to address congestion (see
    Section 3.4.5.2
    ). An MPO in a TMA has a strong voice in setting priorities for implementing projects listed in the TIP and is responsible for additional planning products.
  • Rural Planning Organization (RPO)
    – In Texas, RPOs provide rural transportation planning support to places located outside of designated metropolitan planning areas that are served by an MPO. Regional development organizations (known locally as Councils of Government or COGs) have formed and operate RPOs to help address the rural transportation needs of their multi-county regions. RPOs work with TxDOT Districts to develop the TIP for rural areas that are incorporated into the STIP (see
    Section 2.6.1.2
    ). A map of Texas RPOs is shown in the resource link below.
  • Regional Planning Councils
     – Regional planning councils, also referred to as Council of Governments (COG) or Planning Commissions, are comprised of city, county and special district members working together to implement strategies that address statewide and local needs on a regional level. A map of Texas regional councils can be found in the resource link below.
  • Local government planning staff
     – Local governments/municipalities frequently have information that is critical to a project’s development. Some of the plans they can provide include:
    • ADA Self-Evaluation or ADA Transition plans;
    • Bicyclist/pedestrian plans;
    • Comprehensive plans;
    • Economic/commercial development plans;
    • Greenway/trail plans;
    • Neighborhood plans;
    • Other land use plans;
    • Regional transit plans;
    • Street or transportation plans;
    • Tax Increment Reinvestment Zone (TIRZ) project plans or other similar plans for other value capture districts; and
    • Transit-oriented Development (TOD) plans.
  • Local and Regional Economic Development Councils (EDC)
     – EDCs are non-profit professional associations dedicated to the development of economic and employment opportunities.
  • Chambers of Commerce (CoC)
     – CoCs are local associations that promote and protect the interests of the business community in a particular place. A list of Texas CoCs can be found in the resource link below.

3.4.2 Compliance with Existing Planning Documents

All existing planning documents and programs on the State, regional and local levels that could influence the project scope should be identified and documented in the DSR. The project can encounter significant delays if the proper coordination with stakeholders is not performed during project scoping. Ensure that the project complies with existing plans such as:
  • TxDOT:
     UTP or STIP, ADA Transition Plan, and other statewide plans;
  • Regional:
     TIP, MTP, and transit plans; and
  • Local:
     Thoroughfare plans, master street plans, bicycle plans, economic development plans, water/wastewater, utility, transit, aviation, railroads and ports.

3.4.3 Applicable Related Studies

Related studies may be available that could provide additional information when planning a project and determining its relationship with nearby projects. Obtaining and reviewing these studies gives a broader perspective of regional needs and assists in determining project goals.
Types of related studies include but are not limited to:
  • ADA transition plans;
  • Corridor studies;
  • Drainage Impact Studies/Stormwater Master Plans/State Flood Plan;
  • Feasibility studies;
  • Route studies;
  • Similar studies that propose transportation capital investments which could include city or county thoroughfare maps/plans;
  • Traffic Impact Assessment (TIA) study (typically completed by developers); and
  • Value engineering (VE) analysis.

3.4.4 Traffic and Safety Analysis

Planning phase analysis is typically a low-detail analysis applied to projects. Per the HCM, planning phase analyses are “directed toward broad issues such as initial complication identification, long-range analyses, and regional and statewide performance monitoring.” While planning phase analysis is often applied to high-level projects and large areas, it could also be applied to specific locations and projects that use many data inputs.
Refer to TxDOT’s
Traffic and Safety Analysis Procedures Manual
 (TSAP) for details on the data and tasks to complete for traffic and safety analysis procedures to complete during this phase.

3.4.5 Compliance with Environmental Requirements

Projects in nonattainment or maintenance areas of the State must be developed in compliance with requirements as determined by federal and state laws and policies.
3.4.5.1 State Implementation Plan
For projects in nonattainment or maintenance areas, the MPO must have an MTP and TIP in conformance with the SIP. The SIP is the State’s comprehensive plan to improve air quality and meet federal air quality standards. The department is required to produce and regularly update a SIP which is enforced by the Environmental Protection Agency (EPA). The Clean Air Act requires each state to develop a SIP that outlines a series of steps over time to improve air quality. These include mobile source plans affecting transportation planning and programming. FCAA revisions have been prepared for specific areas in the State (e.g., Dallas-Fort Worth, Houston Galveston).
Consult the SIP to determine whether it includes the project. If the project is not included in the SIP and is required to be, work early with the MPO to amend the local TIP and allow time for the redetermination of air quality conformity.
Include this activity in the project schedule.
The Texas Commission on Environmental Quality (TCEQ) is responsible for air quality planning and has an interface with TxDOT on all transportation planning and programming in areas that are in nonattainment or maintenance for “criteria pollutants.”
These pollutants include particulates, carbon monoxide, ozone, volatile organic compounds, and nitrous oxides.
Document the applicability of the SIP to the project in the DSR.
Proposed projects must be in a conforming MTP to be eligible for federal funding.
3.4.5.2 Congestion Management Process (CMP)
A CMP is required in metropolitan areas with populations greater than 200,000. The CMP is a systematic process for managing congestion that provides information on transportation system performance and on alternative strategies for alleviating congestion and enhancing the mobility of persons and goods to levels that meet state and local needs.
A CMP is a living document that includes methods to monitor and evaluate performance of the multimodal transportation system, identify and evaluate alternative actions, identify causes of congestion, assess and implement cost effective actions, evaluate the efficiency and effectiveness of implemented actions, provide for data collection and system performance monitoring and identify an implementation schedule, responsibilities and funding options.
Transportation Control Measures (TCM) is a developed congestion management strategy, which includes Transportation System Management (TSM), roadway system operational improvements, and Transportation Demand Management (TDM). TCMs are maintained, on a rolling basis, for at least five years.
The Clean Air Act Amendments requires the TCEQ and MPOs that are in nonattainment areas to include TCMs in the SIP (see
Section 3.4.5.1
). Examples of TCMs, TSMs, and TDMs are listed below in
Table 3-2
.
Table 3-2: Example Congestion Management Strategies
TCM
TSM
TDM
  • Traffic flow improvements
  • Trip-reduction ordinances
  • Involve public transit
  • Traffic signal optimization
  • Intersection improvements
  • Roundabouts
  • Capacity expansion
  • Intelligent vehicle/highway system elements
  • Speed reduction and enforcement
  • Bicycle and walking facilities
  • Incident management
  • Ride Share (real time service arranged between drivers and passengers)
  • Car Share (short-term vehicle access without ownership or traditional rental)
  • Bike Share (short-term bicycle use, rented as needed)
  • Transit incentives (employer trip reduction program, carpools, vanpools)
  • Transit improvements (expanding service to underserved traffic generators, park and ride facilities)
  • Employer (flexible work hours, compressed workweeks, or telecommuting)
  • Congestion pricing (parking, toll lanes, HOV lanes)
Added capacity projects (except safety improvements or elimination of bottlenecks) in nonattainment areas may not be programmed for funding unless the project is addressed through a CMP.

3.4.6 Navigable Waterways or Waterway Activity

The Maritime Division (MRD) must be included in all project planning, research, construction, or maintenance activities for projects that directly or indirectly affect navigable waters or waterway activity.
Navigable waters of the United States are those waters that are subject to the ebb and flow of the tide and/or are presently used, have been used in the past, or may be susceptible for use to transport interstate or foreign commerce.

3.4.7 Inclusion of Managed Lanes

Managed lane facilities are appropriate only in urban and suburban freeway corridors where significant traffic congestion is observed or forecasted, and where the feasibility of meeting demand by adding lanes is limited. Managed lanes are single or multiple lanes separated from general purpose lanes by a physical structure, barriers or by pavement markings.
Texas typically uses three main categories of managed lanes:
  • Access control
     – Express lanes, reversible lanes;
  • Vehicle eligibility
     – HOV lanes, truck lane restrictions, off-peak use of HOV lanes by non-HOV vehicles; and
  • Pricing
    – Value-priced lanes, toll lanes, high-occupancy tolled lane (HOT).
If HOV lanes are underutilized, conversion to HOT lanes allows single occupant vehicles to use the managed lane under congestion priced tolls. HOV lanes must be monitored for vehicle and occupancy level eligibility and operating hours. Managed lanes must be evaluated for their ability to reduce congestion and increase throughput in urban and suburban routes.
By statute, Texas has four tolling authorities:
  • County Toll Authority;
  • Regional Mobility Authority;
  • Regional Toll Authority; and
  • Statewide highway tolling projects (TxDOT projects).

3.4.8 Major Project Feasibility

A major project is defined by FHWA as having federal funding and a
total project cost
 greater than $500 million. FHWA may also classify other projects that are not over $500M as major projects.
FHWA has delegated oversight of major projects to TxDOT. Documents and guidance can be found on the DES - Project Delivery Section webpage.
Major projects, operationally independent and non-concurrent construction projects requiring Federal assistance with a minimum estimated cost of $500 million, or projects that have been otherwise identified by FHWA as major projects will have cradle-to-grave oversight by FHWA. Involvement is due to the inherent high risk of these projects.
NEPA responsibilities are assumed by the department and FHWA audits the program to ensure procedures are followed. Department projects considered a major project are automatically an FHWA TxDIP which involves FHWA oversight of the project.
Coordinate with DES – Project Delivery Section on all major projects.
Major projects require tools and programs – mandated by Congress and the FHWA – for the delivery of major projects. These include:
  • Initial Financial Plan (IFP);
  • Financial Plan Annual Update (FPUA);
  • Project Management Plan (PMP); and
  • Cost and Schedule Risk Assessment (CSRA).
Projects between $100M and $500M, not designated as a major project by FHWA, also must have an IFP and annual updates. TxDOT must make these plans available to FHWA for review upon request.

3.4.9 Railroad Corridor Preservation

Projects with potential to use abandoned railroad corridors require a railroad corridor evaluation report. Railroad corridors constitute a source of ROW for future improvements to the transportation system. The corridor must first be identified as abandoned or under consideration of abandonment as verified by the Rail Division (RRD).
If a transportation project can be foreseen within all or a portion of the railroad property, the affected District must prepare a railroad corridor evaluation report recommending for or against corridor acquisition.
A title insurance 3-21 should be obtained for railroad corridor acquisition. Consult with RRD.

3.4.10 Additional Study Requirements Determination

Based on the project scoping meeting and the evaluation of existing plans and project requirements, additional studies may be needed to determine critical design elements and the economic feasibility of a proposed project.
3.4.10.1 Feasibility/Corridor/Route Studies
If previous feasibility, corridor or route studies have not been performed, one or all of these may be needed to determine design concepts, general ROW requirements and associated project impacts. See Section 2.2 for details on requesting and performing any of these three study types. See
Section 2.2
for details on requesting and performing any of these three study types.
3.4.10.2 Traffic Studies
The design of a new transportation facility is based on future traffic projections. Refer to the TSAP for information on the type and methods of traffic data to be collected during this phase of project development
TPP– Traffic Analysis Section performs several functions relating to traffic data collection and analysis, transportation analysis and forecasting, and other traffic related studies to support project planning and traffic data collection.
Traffic data requests can be made through TPP’s intranet webpage. Refer to the Traffic Forecasting Analysis SOP and Guidance document referenced below for additional information.
Request traffic data early as this task can take several months to complete – include this activity in the project schedule.
If major changes to a corridor are being proposed, future traffic may not be able to be projected until the preliminary design phase.
3.4.10.3 Historic Bridge Structures
For bridge projects involving a historic structure, a Historic Bridge Team must be assembled to determine the purpose and need for the project, and to evaluate alternatives that minimize harm to the historic structure. The alternatives analysis dictates the scope of the project (bridge rehabilitation or replacement). This analysis should be completed prior to developing the bridge project.
  • Resources to consult:
  • Coordination:
  •  District planning staff
  •  District environmental staff
  •  District bridge staff
  •  District multimodal coordinators for other modes (e.g., transit, pedestrian, bike, port, railroad, aviation)
  •  District railroad coordinator
  •  ALD Division staff
  •  ALD staff
  •  BRG– Bridge Management section staff
  •  BRG Division – Bridge Management Section staff
  •  DES – Landscape Architecture section staff
  •  DES – Project Delivery section staff
  •  Environmental Affairs (ENV) Division (ENV) – Cultural Resources Branch - Historical staff
  •  PFD Division staff
  •  RRD Division staff
  •  TPP Division staff
  •  MRD staff
  •  PFD staff
  •  RRD staff
  •  TPP– Traffic Analysis Section staff
  •  TRF staff
  •  MPO and regional planning staff
  •  Local government staff
  • Available training:
  •  ENV216 – Overview of TxDOT’s Environmental Review Process for Engineers, Planners, and Others.
  •  ENV414 – EMS Awareness Training & Orientation
  •  TPD342 – TxDOTCONNECT Create a Feasibility Study Project
  •  TPD343 – TxDOTCONNECT Manage Major Projects
  •  TPD345 – TxDOTCONNECT Feasibility Study Training
  •  TPD346 – TxDOTCONNECT Major Projects Training
  •  TRF201 – Intro to Traffic Operations