2 - Program Development
The Transportation Improvement Plan is the complementary capital-programming component of the Long-Range Metropolitan Transportation Plan consisting of all federally funded roadways, transit and major transportation projects being considered within the region over the next five (5) years. Inclusion in the TIP is a prerequisite to federal funding approval for projects programmed from funding sources directly under the GBNRTC responsibility.
The 2023-2027 TIP represents a regional consensus on which priority transportation projects are essential to the Buffalo-Niagara region during the next five (5) years given current financial targets. Projects included in the program move the region towards implementing the current Metropolitan Transportation Plan, meeting short-range needs, and providing for the maintenance of the existing transportation system.
The program documents all federally-funded transportation projects scheduled for implementation in the period beginning October 1, 2022 (Federal Fiscal Year 2023) through September 30, 2027 (Federal Fiscal Year 2027). The TIP includes highway, transit, bicycle and pedestrian projects and freight projects as well as transportation studies and NITTEC operations within the GBNRTC planning area.
Metropolitan Transportation Planning Process
The intent of a TIP, in its simplest terms, is to carry out the region’s transportation vision as explained in the Metropolitan Transportation Plan (Moving Forward 2050) within the constraints of available funding. The GBNRTC adheres to a “3-C” (comprehensive, coordinated, and continuing) transportation planning process as defined in federal regulations (23 CFR § 450.306).
This “3-C” process provides for consideration and implementation of projects, strategies, and services that address the following federal planning factors defined under 23 USC 134:
Support the economic vitality of the metropolitan area, especially by enabling global competitiveness, productivity, and efficiency;
Increase the safety of the transportation system for motorized and nonmotorized users;
Increase the security of the transportation system for motorized and nonmotorized users;
Increase accessibility and mobility of people and freight;
Protect and enhance the environment, promote energy conservation, improve the quality of life, and promote consistency between transportation improvements and State and local planned growth and economic development patterns;
Enhance the integration and connectivity of the transportation system, across and between modes, for people and freight;
Promote efficient system management and operation;
Emphasize the preservation of the existing transportation system;
Improve the resiliency and reliability of the transportation system and reduce or mitigate stormwater impacts of surface transportation; and
Enhance travel and tourism.
Consideration of the planning factors are reflected, as appropriate, in the GBNRTC’s metropolitan transportation planning process. The degree of consideration and analysis of the factors is based on the scale and complexity of many issues, including transportation system development, land use, employment, economic development, human and natural environment, and housing and community development.
The metropolitan transportation planning process provides for the establishment and use of a performance-based approach to transportation decision making to support the national goals.
The GBNRTC shall establish performance targets that address the performance measures or standards to use in tracking progress toward attainment of critical outcomes for the region of the metropolitan planning organization.
The selection of targets that address performance measures shall be in accordance with the appropriate target setting framework established, and shall be coordinated with the relevant State(s) to ensure consistency, to the maximum extent practicable.
The selection of performance targets that address performance measures shall be coordinated, to the maximum extent practicable, with public transportation providers to ensure consistency with the performance targets that public transportation providers establish.
It is the GBNRTC's duty to engage many different stakeholders, including the general public, in the transportation planning process as possible. Public input is essential to the metropolitan planning process and all feedback is welcome and appreciated.
A Memorandum of Understanding formally affirms the GBNRTC’s planning process and sets forth the responsibilities of the Council and its members in accordance with the most current federal and state regulations. This MOU requires annual reaffirmation through a Policy Committee amendment. The current MOU reaffirmation was approved and signed by all members on September 7, 2022 via GBNRTC Resolution 2022-13.
To learn more in general about MPOs and their role, please visit the website for the New York State Association of Metropolitan Planning Organizations (NYSAMPO) and the website for the Association of Metropolitan Planning Organizations (AMPO).
Consideration of ten defined federal planning factors is reflected, as appropriate, in the GBNRTC’s metropolitan transportation planning process. The metropolitan transportation planning process provides for the establishment and use of a performance-based approach to transportation decision making to support the national goals. The degree of consideration and analysis of the factors is based on the scale and complexity of many issues, including transportation system development, land use, employment, economic development, human and natural environment, and housing and community development.
Federal funds are available to the GBNRTC to accomplish transportation planning activities. The GBNRTC documents metropolitan transportation planning activities performed with federal funds in a biennial Unified Planning Work Program (UPWP). The UPWP that includes a discussion of the planning priorities facing the GBNRTC. The UPWP identifies work proposed for the next 2-year period by major activity and task, in sufficient detail to indicate who (e.g., MPO, State, public transportation operator, local government, or consultant) will perform the work, the schedule for completing the work, the resulting products, the proposed funding by activity/task, and a summary of the total amounts and sources of federal and matching funds.
Per CFR 23 § 450.326, the GBNRTC, in cooperation with the State(s) and any affected public transportation operator(s), is required to develop a Transportation Improvement Program (TIP) for the metropolitan planning area. The TIP reflects the investment priorities established in the current metropolitan transportation plan and shall cover a period of no less than 4 years, be updated at least every 4 years, and be approved by the MPO and the Governor. Once implemented, the TIP is designed to make progress toward achieving defined performance targets. The TIP expires when the FHWA/FTA approval of the STIP expires. Copies of any updated or revised TIPs must be provided to the FHWA and the FTA.
In nonattainment and maintenance areas subject to transportation conformity requirements, the FHWA and the FTA, as well as the MPO, must make a conformity determination on any updated or amended TIP, in accordance with the Clean Air Act requirements and the EPA's transportation conformity regulations.
The GBNRTC provides all interested parties with a reasonable opportunity to comment on the proposed TIP as required. The GBNRTC also provides at least one formal public meeting during the TIP development process. The GBNRTC publishes (hard copy and electronically) the TIP for public review and makes the TIP available electronic mail distribution, world wide web and social media platforms. The GBNRTC staff is always available to meet with any interested parties.
For each TIP project or phase, the following information is provided:
Sufficient descriptive material (i.e., type of work, termini, and length) to identify the project or phase;
Estimated total project cost, which may extend beyond the 4 years of the TIP;
The amount of federal funds proposed to be obligated during each program year for the project or phase (for the first year, this includes the proposed category federal funds and source(s) of non-federal funds. For the second, third, and fourth years, this includes the likely category or possible categories of federal funds and sources of non-federal funds);
Identification of the agencies responsible for carrying out the project or phase;
In nonattainment and maintenance areas, identification of those projects that are identified as TCMs in the applicable SIP;
In nonattainment and maintenance areas, included projects shall be specified in sufficient detail (design concept and scope) for air quality analysis in accordance
with the EPA transportation conformity regulations (40 CFR part 93, subpart A);
and
In areas with Americans with Disabilities Act required paratransit and key station plans, identification of those projects that will implement these plans.
The GBNRTC TIP also includes a financial plan that demonstrates how the approved TIP can be implemented, indicates resources from public and private sources that are reasonably expected to be made available to carry out the TIP, and recommends any additional financing strategies for needed projects and programs. The MPO, State(s), and public transportation operator(s) shall cooperatively develop estimates of funds that are reasonably expected to be available to support TIP implementation. The TIP includes projects, or a phase of a project, only if full funding can reasonably be anticipated to be available for the project within the time period contemplated for completion of the project.
The first year of the TIP will constitute an “annual element” list of projects for project selection purposes and no further project selection action is required for the implementing agency to proceed with projects, except where the appropriated federal funds available to the metropolitan planning area are significantly less than the authorized amounts or where there is significant shifting of projects between years. In this case, the MPO, the State, and the public transportation operator(s) if requested by the MPO, the State, or the public transportation operator(s) shall jointly develop a revised “agreed to” list of projects.
The GBNRTC may revise the TIP at any time under procedures agreed to by the State, MPO, and public transportation operator(s) consistent with the established TIP development procedures and the procedures listed in the MPO participation plan. In nonattainment or maintenance areas for transportation-related pollutants, if a TIP amendment involves non-exempt projects (per 40 CFR part 93), or is replaced with an updated TIP, the MPO and the FHWA and the FTA must make a new conformity determination. In all areas, changes that affect fiscal constraint must take place by amendment of the TIP. The GBNRTC uses public participation procedures consistent with §450.316(a) in revising the TIP, except that these procedures are not required for administrative modifications.
On an annual basis, no later than 90 calendar days following the end of the program year, the State, public transportation operator(s), and the MPO shall cooperatively develop a listing of projects (including investments in pedestrian walkways and bicycle transportation facilities) for which funds were obligated in the preceding program year.
Illustrative Projects
To maintain their respective TIPs in fiscal constraint and to show projects that meet local transportation needs, MPOs and Regions are allowed to include additional projects in their Plan, and as appropriate, in the TIP for inclusion in the STIP, for information as “illustrative projects”. [23 CFR 450. 326]
Illustrative projects are additional transportation projects that may (but is not required to) be included in a financial plan for a metropolitan transportation plan, TIP, or STIP if reasonable additional resources were to become available [23 CFR 450.104]. If a project is proposed to be included in the TIP for illustrative purposes, sufficient information is required to describe the project, excepting the resources. [§ 450.218] Illustrative Project total cost estimates can be a range.
Changes to illustrative projects do not require TIP amendments. However:
These projects may be candidates to be added to the TIP if additional funding was made available. If and when the resources become available, MPOs will have to amend their Plan and the TIP/STIP to bring these projects into the fiscally constrained TIP and maintain fiscal constraint. In this case, an amendment should be prepared in eSTIP.
In non-attainment and maintenance areas, when MPOs amend their TIPs to add these projects into the fiscally constrained TIP, conformity may need to be re-established, depending on the exempt/non-exempt nature of the project(s).
Planning Emphasis Areas
Planning Emphasis Areas are areas that FHWA and FTA will emphasize when meeting with metropolitan planning organizations. The following areas, definitions and guidance were taken from a December 30, 2021 letter from the Federal Transit Administration.
Tackling the Climate Crisis – Transition to a Clean Energy, Resilient Future
Ensure that our transportation plans and infrastructure investments help achieve the national greenhouse gas reduction goals of 50-52 percent below 2005 levels by 2030, and net-zero emissions by 2050, and increase resilience to extreme weather events and other disasters resulting from the increasing effects of climate change.
Use the transportation planning process to accelerate the transition toward electric and other alternative fueled vehicles, plan for a sustainable infrastructure system that works for all users, and undertake actions to prepare for and adapt to the impacts of climate change.
Identify barriers to and opportunities for deployment of fueling and charging infrastructure.
Evaluate opportunities to reduce greenhouse gas emissions by reducing single-occupancy vehicle trips and increase access to public transportation.
Shift to lower emission modes of transportation.
Identify transportation system vulnerabilities to climate change impacts and evaluate potential solutions.
Equity and Justice40 in Transportation Planning
Improve infrastructure for non-motorized travel, public transportation access, and increased public transportation service in underserved communities.
Plan for the safety of all road users, particularly those on arterials, through infrastructure improvements and advanced speed management.
Reduce single-occupancy vehicle travel and associated air pollution in communities near high-volume corridors.
Offer reduced public transportation fares as appropriate.
Target demand-response service towards communities with higher concentrations of older adults and those with poor access to essential services.
Consider equitable and sustainable practices while developing transit-oriented development including affordable housing strategies and consideration of environmental justice populations.
Complete Streets
A complete street is safe, and feels safe, for everyone using the street.
Review current policies, rules, and procedures to determine their impact on safety for all road users. This effort should work to include provisions for safety in future transportation infrastructure, particularly those outside automobiles.
Plan, develop, and operate streets and networks that prioritize safety, comfort, and access to destinations for people who use the street network, including pedestrians, bicyclists, transit riders, micro-mobility users, freight delivery services, and motorists.
Prioritize safety improvements and speed management on arterials that are essential to creating complete travel networks for those without access to single-occupancy vehicles.
Public Involvement
Early, effective, and continuous public involvement brings diverse viewpoints into the decision-making process.
Increase meaningful public involvement in transportation planning by integrating Virtual Public Involvement (VPI) tools into the overall public involvement approach while ensuring continued public participation by individuals without access to computers and mobile devices. The use of VPI broadens the reach of information to the public and makes participation more convenient and affordable to greater numbers of people. Virtual tools provide increased transparency and access to transportation planning activities and decision-making processes.
Increase participation earlier in the process to reduce project delays and lower staff time and costs.
Strategic Highway Network (STRAHNET)/U.S. Department of Defense (DOD) Coordination
Coordinate with representatives from DOD in the transportation planning and project programming process on infrastructure and connectivity needs for STRAHNET routes and other public roads that connect to DOD facilities.
Federal Land Management Agency (FLMA) Coordination
Coordinate with FLMAs in the transportation planning and project programming process on infrastructure and connectivity needs related to access routes and other public roads and transportation services that connect to federal lands.
Explore opportunities to leverage transportation funding to support access and transportation needs of FLMAs before transportation projects are programmed in the Transportation Improvement Program (TIP).
Planning and Environment Linkages (PEL)
Use of PEL as a collaborative and integrated approach to transportation decision-making that considers environmental, community, and economic goals early in the transportation planning process, and uses the information, analysis, and products developed during planning to inform the environmental review process.
PEL leads to interagency relationship building among planning, resource, and regulatory agencies in the early stages of planning to inform and improve project delivery timeframes, including minimizing duplication and creating one cohesive flow of information.
Minimize the impacts on human and natural resources.
Data in Transportation Planning
Data sharing principles and data management can be used for a variety of issues, such as freight, bike and pedestrian planning, equity analyses, managing curb space, performance management, travel time reliability, connected and autonomous vehicles, mobility services, and safety.
Developing and advancing data sharing principles allows for efficient use of resources and improved policy and decision-making at the State, MPO, regional, and local levels for all parties.
MPO Self-Certification
The GBNRTC has recently undergone/completed an extensive federal certification review process.
The FHWA/FTA have certified that GBNRTC metropolitan Planning process is being carried forth in accordance with all applicable federal and state rules and regulations (reference 23 CFR 450.336. As a result, NYSDOT concluded that GBNRTC is not required to self-certify this year.
Proof of federal certification (follows) has been provided to NYSDOT as requested.
New York State Guidance
To ensure that New York State’s transportation system can facilitate the efficient movement of individuals and commerce; withstand the increasing intensity and frequency of extreme weather events; support changing personal mobility and travel demands, and minimize the impact on greenhouse gas emissions, this Transportation Improvement Program/Statewide Transportation Improvement Program (TIP/STIP) Update process incorporates heightened considerations. In addition to emphasizing engineering-based asset management principles, this TIP/STIP update process emphasizes improvements that address climate/resilience vulnerabilities; reduce the carbon footprint of transportation; support operational enhancements and emergency response efforts through Traffic Systems Management and Operations (TSMO) activities; and improves overall safety and accessibility for all system users, including motorists, transit users, bicyclists and pedestrians.
As in previous TIP/STIP Updates, NYSDOT has provided targets for planning purposes only. The planning targets do not represent a commitment of funding on behalf of the Federal Highway Administration (FHWA) or the State.
Funding for select programs and recognized non-discretionary expenses are reserved prior to the apportionment of needs-based regional planning targets. These programs include Structure Inspections, 511NY, Traffic Signal Components, Rustic Rail, and centrally managed initiatives such as Statewide Highway Safety Improvement Program (HSIP), National Highway Freight Program (NHFP), and BRIDGE NY. In addition, a number of new programs have been added in the recently enacted BIL such as the Carbon Reduction Program and the Promoting Resilient Operations for Transformative, Efficient and Cost-saving Transportation (PROTECT) Program. These will be amended into the new STIP as federal guidance becomes available. Programs such as Surface Transportation Block Grant (STBG) set aside (formerly, Transportation Alternatives), Earmarks, Grade Crossing, Recreational Trails, Demonstration Funds, and other discretionary funding are considered non-allocated fund sources and are managed separately outside planning targets.
NYSDOT Regions have received a preventive/corrective maintenance investment target for the state- owned system that reflects a mandated use of the overall planning target. There is no preventive/corrective maintenance target for the local program. While NYSDOT strongly encourages local municipalities to follow sound asset management principles, it is understood that local governments generally wish to use federal-aid for larger system renewal projects and use their own funds for preventive and corrective maintenance projects. NYSDOT Regions have developed their programs to meet the preventive/corrective maintenance target for the state system.
The eSTIP Application will again be used by MPOs and the Regions to manage their amendments and build the draft STIP.
MPO TIPs and the STIP shall be financially constrained by year1 using estimates of current and/or reasonably available revenues. Please refer to the sample table for your use. These tables must reflect unmatched federal amounts. The MPO and its respective NYSDOT Region(s) must discuss any proposed deviation from fiscal constraint with NYSDOT Main Office well before the submission deadline and any program public reviews, approvals or votes. NYSDOT Main Office will either approve the deviation or work with the Region/MPO to resolve the deviation.
FHWA continues to review STIP performance. FHWA’s national goal is to see 75% of the construction phases programmed for obligation in a Federal Fiscal Year obligated by the end of that Federal Fiscal Year. NYSDOT will be enforcing fiscal constraint, and Regions and MPOs will not be permitted to program in excess of their planning targets by FFY.
TIP Development Schedule
About eighteen months prior to the new TIP’s release, the GBNRTC staff begins to meet with member agencies at the monthly Transportation Programs Subcommittee (TPS) meetings and agree on a completion schedule that included four major work tasks needed to complete the new TIP. These include:
Project Development – Provide system condition data to member agencies and Intake project proposal candidates.
Project Review – Prioritize projects and develop a fiscally constrained listing based on anticipated federal planning targets (by fund source) provided by NYSDOT. The Interagency Consulting group must approve Air Quality conformity analysis. NYSDOT Main Office reviews Draft TIP.
Public Review – 30-day public review period of draft TIP including a public information meeting.
Approval – The TIP must be approved by the GBNRTC Policy Board, NYSDOT Main Office (including a 30-day STIP public review period) and FHWA before it can become active.
The complete 2023-2027 TIP development and completion schedule follows.