PLANNING TOPICS

Rural and small communities are typically defined as areas outside the U.S. Census-designated Urban Areas with populations of 50,000 or greater. Rural planning can occur on the regional scale, often with regional transportation planning organizations (RTPOs), and at the local level in collaboration with municipalities, counties, or unincorporated communities.

Institutional arrangements and transportation issues can differ in rural areas from those in metropolitan areas with populations of 50,000 or more. The scale and scope of these issues is particularly significant. For example, a rural community may only have one traffic signal, but there may be significant safety issues caused by high travel speeds and limited pedestrian infrastructure. Moreover, rather than high traffic volumes, congestion in rural communities may be attributed to truck traffic, agricultural equipment movement, or animal activity (for example, livestock crossing roads).

In metropolitan areas, planning responsibility lies with designated metropolitan planning organizations. In small communities and rural areas, there may not be a single designated authority, and implementation and operations authority may be fragmented across a variety of jurisdictions. In some states, the State department of transportation conducts planning for these areas. In other states, the State DOT helps to coordinate the establishment of formal Regional Transportation Planning Organizations (RTPOs), agencies that operate similarly to MPOs but for non-metropolitan areas by facilitating rural planning activities. Rural areas sometimes face transportation issues of a different nature than those encountered in metropolitan areas.

Regional Transportation Planning Organizations (RTPOs)

RTPOs are established to improve planning, coordination, and implementation of statewide transportation priorities focused on nonmetropolitan, rural areas. 23 U.S.C. §135(m) outlines the statutory basis for establishing and operating RTPOs. RTPOs are established by governors and must form policy committees representing political, economic, and community interests and appoint agents for planning and administrative support. RTPOs must be comprised of multijurisdictional members and policy committees must be nonmetropolitan local officials and designees. RTPOs identify local transportation needs, assist local governments, and support statewide transportation planning in rural regions, emphasizing rural planning and local realities.

Statute requires consultation with State and/or county officials and allows States to establish RTPOs to address rural needs for populations under 50,000. The Final Rule on Statewide and Nonmetropolitan Transportation Planning and Metropolitan Transportation Planning (Final Rule, 81 Fed. Reg. 34,050, May 27, 2016) requires cooperation among states, MPOs, RTPOs, and transit agencies in rural planning, and RTPOs develop long-range plans, regional improvement programs, and coordinate land use and economic development to ensure rural perspectives shape statewide policy.

23 U.S.C. §135(m) outlines a series of key duties that RTPOs are required to administer, including:

• Developing and maintaining long-range plans
• Creating a transportation improvement program
• Fostering planning coordination
• Providing technical assistance to local officials
• Participating in national, multistate, and state policy planning and development processes
• Facilitating public participation on transportation issues
• Considering and sharing plans with neighboring RTPOs, MPOs, and tribal governments

As noted in 23 U.S.C. §135(m), States that choose not to establish or designate an RTPO, shall nevertheless consult with affected nonmetropolitan local officials to determine projects that may be of regional significance.

Key Planning Documents

• Coordinated Public Transit Human Services Transportation Plan
  Projects funded under the Enhanced Mobility of Seniors & Individuals with Disabilities (Section 5310) program are required to be included in a coordinated services plan, which identifies the transportation needs of individuals with disabilities, older adults, and people with low incomes; provides strategies for meeting these needs; and prioritizes transportation services for funding and implementation. Plans must include an approval process that has participation from “seniors, individuals with disabilities, representatives of public, private, and nonprofit transportation and human service providers and other members of the public.”
  Example: Utah Coordinated Human Services Transportation Plans.
• Long Range Transportation Plan (LRTP)
  Each State DOT is required to create a transportation plan that sets forth the development and implementation of a state’s multimodal transportation system for a horizon of at least 20 years. States can coordinate with RTPOs in developing LRTPs as a strategy to formalize engagement with rural communities. RTPOs may also be required by States to develop long-range plans to plan for rural transportation needs.
  Example: Pee Dee Regional Council of Governments, South Carolina.
• Transportation Improvement Program (TIP)
  MPOs are required to produce TIPs, which list upcoming transportation projects in a four-year period. In some cases MPOs who serve RTPOs will also list local rural priority projects. Some RTPOs coordinate rural priorities through their regional TIP or the state’s STIP. While State DOTs are required to accept an MPO’s TIP projects without modification, it recommended that States consider an RTPO’s TIP projects.
  Example: Spokane Regional Transportation Council.
• State Transportation Improvement Program (STIP)
  STIPs are produced by State DOTs and serve as the statewide version of the TIP; RTPO long-range planning activities assess transportation needs and identify projects that could potentially be implemented in the STIP.
• Transit Development Plan (TDP)
  While not federally mandated, many states require TDPs, which serve as studies of counties' transit service. TDPs identify transit needs, prioritize improvements, determine required resources.
  Example: Lassen County (CA) Transit Development Plan

Funding Programs

Formula Grants for Rural Areas Program (Section 5311)
Section 5311 provides funds to States to support public transportation in rural areas with populations of less than 50,000. Section 5311 funds are apportioned to States based on a formula that factors land area, population, revenue vehicle miles, and low-income individuals in rural areas. See FTA’s circular on Section 5311 for additional information.

• Eligible Recipients: States and federally recognized Indian Tribes
• Eligible Subrecipients: State or local government authorities, nonprofit organizations, and operators of public transportation or intercity bus service
• Eligible Projects: Planning, capital, operating, job access and reverse commute projects, and the acquisition of public transportation services
• Match (federal/local): 80/20 Capital; 50/50 Operating

Enhanced Mobility of Seniors and Individuals with Disabilities Formula Program (Section 5310)
Section 5310 provides funds that helps improve mobility for older adults and people with disabilities by removing barriers to transportation services and expanding transportation mobility options. Section 5310 funds are frequently used to support mobility services for seniors and people with disabilities in rural areas, where public transportation options are often limited or nonexistent.

• Eligible Recipients: States, government authorities (includes Tribes), and designated recipients. In urbanized areas (UZAs) with populations less than 200,000 and in rural areas, the state is the designated recipient
• Eligible Subrecipients: States, government authorities (includes Tribes), non-profits, and operators of public transportation
• Eligible Projects: Capital and operating (vehicle purchases, travel training, mobility management, acquisition of transportation services, vouchers, wheelchair lifts/ramps)
• Match (federal/local): 80/20 Capital; 50/50 Operating
• Apportionment: 20% to rural communities, 20% small UZAs, 60% large UZAs

Federal Share Waiver for Federally-Funded Complete Streets Planning Activities
RTPOs using federal State Planning and Research (SPR), Metropolitan Planning (PL), and FTA Section 5305 funds to execute Complete Streets planning activities are eligible to fund these projects with 100 percent federal share. Please see these FAQs on the Complete Streets waiver for additional information.

Technical Assistance

• The National Rural Transit Assistance Program is funded by FTA through Section 5311. It provides free training and technical assistance resources and services for rural and tribal transit providers and state programs.
• The Rural Opportunities to Use Transportation for Economic Success (ROUTES) Initiative provides technical assistance for rural and tribal communities seeking support on transportation planning, safety, mobility, and economic development matters. The ROUTES website also provides resources on competitive grant opportunities, a toolkit for prospective grant applicants in rural and small communities, and information on relevant financing opportunities.
• The Rural Surface Transportation Grant Program funds a variety of transportation projects outside rural areas. The program’s website contains application guidance, details on project eligibility, and resources to support implementation.
• The Nationally Significant Multimodal Freight & Highway Projects program (INFRA)’s Leverage Pilot Program sets aside 25 percent of its funds for rural projects.

TPCB case studies

• Louisiana DOTD and Louisiana State University AgCenter’s Approach to Creating Complete Streets in Rural Communities
• Central Ohio Rural Planning Organization (CORPO)’s Establishment as a Regional Transportation Planning Organization (RTPO)
• Southern Alleghenies Planning and Development Commission’s Approach to Leveraging Public Outreach in Rural Transportation Planning
• Roaring Fork Transportation Authority’s Approach to Rural Transportation
• Delaware DOT (DelDOT)/Delaware Transit Corporation (DTC)’s DART Connect Program
• City of San Marcos, Texas and Capital Area Rural Transportation Systems (CARTS) Partnership

DOT Publications and Resources

• FHWA’s Rural Programs and Resources landing page contains a wide range of funding opportunities, technical assistance programs, and informational resources.
• FTA’s Rural Transportation Planning page focuses on the intersection of planning and public transit for rural jurisdictions, with case studies, resources on funding opportunities, and relevant external resources.
• FTA’s Transit at the Table series centers on case studies that identify processes, experiences, and results of transit participation in planning processes in smaller communities. Transit at the Table III highlights planning efforts in rural areas, while Transit at the Table II focuses on small- and medium-sized jurisdictions.
• USDOT provides an overview of the agency’s role in rural transportation, as well as support provided by other federal agencies.
• FHWA’s Integrating Safety in the Rural Transportation Planning Process provides methods for integrating safety into each step of the RPO planning and programming process, to assist in addressing the multimodal safety needs of rural roads.

External Resources

• RuralTransportation.org, operated by the National Association of Development Organizations (NADO), provides resources on forming and operating RTPOs, a library of resources on a range of rural transportation topics, and a regular newsletter with news and information. NADO broadly focuses on supporting the interests of rural communities and represents over 500 Regional Development Organizations (RDOs) nationwide, provides technical assistance and informational resources focused on RDOs.
• The National Center for Rural Road Safety (NCRRS) provides comprehensive training resources and technical assistance opportunities on a variety of rural transportation safety topics.
• The American Public Transportation Association (APTA)’s report on Public Transportation’s Impact on R​u​​​ral and Small Towns charts ridership trends, details economic impacts, and outlines service options.
• The Transportation Research Board’s Standing Technical Committee on Low Volume and Rural Roads promotes research on planning, designing, building, and operating low-volume roads.

Federal planning regulation 2003 (and again in 2007 after the 2005 Safe, Accountable, Flexible, Efficient Transportation Equity Act: A Legacy for Users, or SAFETEA-LU, was passed) outlined the required process for nonmetropolitan local official consultation in statewide planning. SAFETEA-LU provides for consultation with non-metropolitan officials when State Departments of Transportation make transportation decisions in their Statewide Transportation Planning and Programming processes. This consultation process, separate and discrete from the public involvement process, is required to be documented in writing. All States have completed this task. Every five years, beginning in 2006, States are required to review and solicit comments from non-metropolitan local officials and other interested parties regarding this process in order to ensure that it continues to be effective. A rule on non-metropolitan consultation, released in 2003, describes these requirements. The text of the regulation is available here.

SAFETEA-LU is the last regulation that cites rural planning. RTPOs were considered stakeholders to the planning process. They were not defined until the 2012 law Moving Ahead for Progress in the 21^st Century (MAP-21).

The regulation established a common set of tasks and institutional structures (cited in the bullets listed in the Key Planning Documents section above).