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7/31/2019 America Bikes' Analysis of Bicycle and Pedestrian Programs in MAP-21
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AmericaBikes'AnalysisofBicycleandPedestrianPrograms
SAFETEALUvs.MAP21
Congresspassedanewfederaltransportationlaw,MovingAheadforProgressinthe21st
Century(MAP21),inJuneof2012.
Whilethenewlawsignificantlycutsavailablefundingforbikingandwalkingprojects,this
legislationpresentsanopportunityforAmericanstoencouragestateandlocalgovernmentsto
fullyutilizeavailablefundstomakebikingandwalkingsaferandmoreconvenient.
ThisdocumentisAmericaBikescompleteanalysisofthebikingandwalkingportionsofMAP21.OriginallywrittenshortlyafterthelawsreleaseinJuneof2012,ithasbeenupdated
multipletimestoreflectnewinformation.Mostrecently,AmericaBikesupdatedthisanalysisto
incorporateinterimguidancefromtheFederalHighwayAdministrationoftheUSDepartmentof
Transportation.
FormoreinformationonMAP21includinganswerstofrequentlyaskedquestionsandways
togetinvolvedinyourcommunityvisit americabikes.org/map_21.
TableofContents
Programs .........................................................................................................................................2Analysis .......................................................................................................................................2
FundingandStateoptout ..............................................................................................................3Analysis .......................................................................................................................................4
EligibleUses:TransportationEnhancements..................................................................................6Analysis .......................................................................................................................................7
EligibleUses:SafeRoutestoSchool................................................................................................9Analysis .......................................................................................................................................9
EligibleUses:RecreationalTrailsProgram ....................................................................................10Analysis .....................................................................................................................................10
EligibleActivities:Other ................................................................................................................11
Analysis .....................................................................................................................................11ProgramMechanics:GrantProgram.............................................................................................12Analysis .....................................................................................................................................13Chart:DistributionofTransportationAlternativesfunds..........................................................14
MandatorySidepathClause ..........................................................................................................15Analysis .....................................................................................................................................15
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Programs
SAFETEALU 2012MAP21
3distinctprogramswiththeirownfundingandmechanicsfordistribution
TransportationEnhancements SafeRoutestoSchool RecreationalTrails
TransportationAlternativescombinesthefollowingprograms:
TransportationAlternatives*(formerlyTransportation
Enhancements)
SafeRoutestoSchool RecreationalTrails Someroaduses
Analysis
Bycombiningthethreemainprogramsthatfundedbikingandwalkingprojects,plannersand
localcommunitieslosethespecificmechanismsforfunding.Inordertotakefulladvantageof
theseprograms,applicantsandadvocatesmustlearnthenewsystemandnomenclature.
Becausethefundingmechanismwillbecompletelynew,itwilltakeUSDOTandStateDOTs
sometimetogetthisnewprogramupandrunning.
*Note:Thenewbillreferstoboththeoverallfundingprogramandthenewlyeligibleusesforthe
formerTEprogrambythesamenameTransportationAlternatives.Inthisdocument,werefer
totheoverallprogramastheTransportationAlternativesProgramandthesmallerproject
categoryasTransportationAlternativesprojects.Thisdistinctionisnotinthelawitself.
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FundingandStateoptout
Thenewbillrepresentsasignificantreductioninfundingforbikingandwalkingprojects.
SAFETEALU 2012MAP21
Infiscalyear2011,thecombinedfunding
forTransportationEnhancements,Safe
RoutestoSchool,andRecreationalTrails
was$1.2billionlessthan2%ofall
transportationfunding.
ThecombinedfundingforTransportation
AlternativesProgramforalluseswillbe
approximately$800millionperyear.**
Nationally,TransportationAlternativeswill
makeup$808.76millioninfiscalyear2013
and$819.90millioninfiscalyear2014.
EachstatesTAfundingisdeterminedby
dividingthenationaltotalsamongthe
statesbasedoneachstatesproportionate
shareoffiscalyear2009Transportation
Enhancementsfunding.
Stateoptout/transfer:
Statescouldtransferupto1015%of
TransportationEnhancementsfundsto
otherprograms.
SafeRoutestoSchoolfundingwasnon
transferable.
Stateoptout/transfer:
Statescantransferupto50%of
TransportationAlternativesProgram
fundingtootheruseswithout
explanation.Statesmayonlytransferthe
fundingthatwouldbemadeavailableto
localentitiesthroughastaterun
competitivegrantprogram.StatesmaynottransferTAfundsthataredistributed
throughsuballocationbypopulation.For
moreinformation,seeProgramMechanics:
GrantProgram.
USDOTsinterimguidancestipulatesthata
statemaytransferTAfundstotheNational
HighwayPerformanceProgram(NHPP),the
SurfaceTransportationProgram(STP),the
HighwaySafetyImprovementProgram
(HSIP),theCongestionMitigationandAirQualityprogram(CMAQ),and/orMetro
planningprogram.
Inastateofemergency,statescantransfer
100%ofTransportationAlternatives
Programfundingtorebuilddamaged
highwayinfrastructure.
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IfthestatereceivesreimbursementforStateofEmergencydamages
throughanadditionalappropriation,it
mustberepaidtotheTransportation
AlternativesProgram.
ThroughtheCoburnoptout,ifthe
unobligatedbalanceoftheTransportation
AlternativesProgramexceeds100%ofa
oneyearallocation,everythingoverthat
100%canbeusedforCMAQuses.
Federalshare:
UnderSAFETEALU,thefederalSafeRoutes
toSchoolprojectswasoneoftherare
transportationprogramsinwhich100%ofaprojectscostscouldbepaidbyfederal
funds,withoutalocalmatch.
ForTransportationEnhancementsand
RecreationalTrailsprojects,federalfunds
covered80%ofaprojectscostsandlocal
entitiespaid20%ofthecosts.
Federalshare:
DuetoitsconsolidationwithTransportation
Alternatives,SafeRoutestoSchoolprojects
willnowfallunderthesamematchrequirementsasmostothertransportation
projects80%federalfundingwitha20%
localmatch.
Projectsthatpreviouslyfellunder
TransportationEnhancementsand
RecreationalTrailsremainsubjecttothe
80%federaland20%localfunding
breakdown.
Analysis
Overall,theamountoffundinghasbeencutby33%.Ifallstatesfullyexercisetheiroptout,the
newbillwillrepresenta66%cutinfunding.**
Thestateoptoutprovisionisamajorblowtofundinglevels.Astatethatchoosestooptoutcan
usethisfundingforanyprogramwithnoadditionalrestrictions.EvenastateDOTthatcares
aboutbikingandwalkingmaybetemptedtohaveunrestrictedfundingforhighwayuses.
Keepingthisfundingforbikingandwalkingwillrequiresignificantadvocacyatthestatelevel.
Unfortunately,theUSDepartmentofTransportationsinterpretationofMAP21determined
thatSafeRoutestoSchoolprojectswillnotcontinuetobe100%federallyfunded.This
alterationisanespeciallyharshblowforlowincomecommunitiesinneedofsaferstreets
aroundschoolsthathavefewlocalfundstosupportneededprojects.
ThetransferabilityoffundsmakestheCoburnoptoutvirtuallymeaningless.
**Note:Inouroriginalanalysis,AmericaBikeshadfoundthatfundingforTransportation
Alternativeswouldcometo$702millionperyear,representinganoverallfundingcutof42%
anda70%cutifallstatesexercisetheoptout.Uponfurtherreview,AmericaBikesfoundthat
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availablefundingwillactuallybe$792or$808million,representinga33%cutoverallanda66%
cutifallstatesoptout.
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EligibleUses:TransportationEnhancements
TransportationEnhancementsprojectsarenowcalledTransportationAlternativesprojects.
SAFETEALU 2012MAP21
TransportationEnhancements
Dedicatedfunding:
10%ofSurfaceTransportationProgramfunds(1%oftotal
transportationfunding)
$878millionin2011
Eligibleactivities:
1. Bicycleandpedestrianfacilities2. Bicycleandpedestriansafetyand
educationactivities
3. Acquisitionofsceniceasementsandscenicorhistoricsites
4. Scenicorhistorichighwayprograms(includingtheprovisionoftourist
andwelcomecenterfacilities)
5. Landscapingandotherscenicbeautification
6. Historicpreservation7. Rehabilitationandoperationof
historictransportationbuildings,
structures,orfacilities(including
historicrailroadfacilitiesand
canals)
8. Preservationofabandonedrailwaycorridors(includingtheconversion
andusethereofforpedestrianor
bicycletrails)
9. Inventory,controlandremovalofoutdooradvertising10.Archaeologicalplanningandresearch
11.Environmentalmitigationtoaddresswaterpollutiondueto
highwayrunofforreducevehicle
causedwildlifemortalitywhile
maintaininghabitatconnectivity
TransportationAlternativesprojects
Dedicatedfunding:
Nodedicatedfunding.Theseprojectsareeligibleforfundingunderthe
largerTransportationAlternatives
Program.
Eligibleactivities:
1. Construction,planning,anddesignofonroadandoffroadtrail
facilitiesforpedestrians,bicyclists,
andothernonmotorizedformsof
transportation,includingsidewalks,
bicycleinfrastructure,pedestrian
andbicyclesignals,trafficcalming
techniques,lightingandother
safetyrelatedinfrastructure,and
transportationprojectstoachieve
compliancewiththeAmericanswithDisabilitiesActof1990.
2. Construction,planning,anddesignofinfrastructurerelatedprojects
andsystemsthatwillprovidesafe
routesfornondrivers,including
children,olderadults,and
individualswithdisabilitiesto
accessdailyneeds.
3. Conversionanduseofabandonedrailroadcorridorsfortrailsfor
pedestrians,bicyclists,orothernonmotorizedtransportationusers.
4. Constructionofturnouts,overlooks,andviewingareas.
5. Communityimprovementactivities,including:
inventory,control,orremovalofoutdooradvertising;
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12.Transportationmuseums historicpreservationandrehabilitationofhistoric
transportationfacilities;
vegetationmanagementpracticesintransportation
rightsofwaytoimprove
roadwaysafety,preventagainst
invasivespecies,andprovide
erosioncontrol;and
archaeologicalactivitiesrelatingtoimpactsfromimplementation
ofatransportationproject
eligibleundertitle23.
6. Anyenvironmentalmitigationactivity,includingpollution
preventionandpollution
abatementactivitiesandmitigation
toaddressstormwater
management,control,and
waterpollutionpreventionor
abatementrelatedtohighway
constructionorduetohighway
runoff,includingactivities
describedinsections133(b)(11),
328(a),and329oftitle23;or
reducevehiclecausedwildlifemortalityortorestoreand
maintainconnectivityamongterrestrialoraquatichabitats.
Analysis
Inthenewprogram,thechangestothesafetyandeducationactivitiesremoveeligibilityfor
educationandsafetyactivities.However,noninfrastructureprojectstoencouragesafewalking
andbicyclingtoschoolforkindergartenthrougheighthgradearestilleligibleasSafeRoutesto
Schoolprojects.
TheeligibilityforconstructionofturnoutsistomakeupforthelossoftheScenicByways
program,andsomeuseswerecoveredundertheoriginalprogram.
Inthenewlaw,eligibilitiesregardingscenicorhistorichighwayprograms,landscapingand
beautification,historicpreservation,rehabilitationoftransportationbuildings,andpreservation
ofhistoricrailwaycorridorsarereworded.TransportationAlternativesfundscannowonlybe
usedforarchaeologicalactivitiesiftheprojectsaretransportationrelated.
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Sceniceasementsandmuseumsweredeletedaseligibilities.Rehabilitationofhistoricbuildings
isnowcombinedwithhistoricpreservation.
Environmentalmitigationeligibility#6inthenewprogramwasexpandedfromthespecific
usesincurrentlawtoincludeANYenvironmentalmitigation,includingNEPAcompliance.
AddingANYenvironmentalmitigationallowsfundingfromtheTransportationAlternatives
Programtobedirectedtowardsfederalenvironmentalrequirementspreviouslynotallowable
underTransportationEnhancements.Becauseofthelocalcontrolaspectsofthebill,local
governmentsarelesslikelytousethisfundingforNEPAcompliance.
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EligibleUses:SafeRoutestoSchool
SafeRoutestoSchooliseliminatedasastandaloneprogram,buttheprogramlanguageisstill
inthebill.
SAFETEALU 2012MAP21
SafeRoutestoSchool
Dedicatedfunding:
$182millionin2011
Features:
Standaloneprogramincludingseparateandspecificfunding
processesforstakeholders
Statesmustspend7090%ofprogramfundingforinfrastructureand1030%
fornoninfrastructure
FundedafulltimestateSafeRoutestoSchoolCoordinator
SafeRoutestoSchool
Dedicatedfunding:
Nodedicatedfunding.
Eligibleprojects:
1. Infrastructurerelatedprojectsplanning,design,andconstruction
ofinfrastructurerelatedprojectson
anypublicroadoranybicycleor
pedestrianpathwayortrailinthe
vicinityofschoolsthatwill
substantiallyimprovetheabilityof
studentstowalkandbicycleto
school.
2. Noninfrastructurerelatedactivitiestoencouragewalkingandbicycling
toschool
3. SafeRoutestoSchoolcoordinator.
Analysis
WebelievethatastatecanchoosetorunastateSafeRoutestoSchoolprogramasis,butthe
fundingwouldneedtocomefromtheiroveralltransportationdollars.Becauseitreferences
currentSafeRoutestoSchoollaw,theabilitytofundbothinfrastructureandnoninfrastructure
isretained.ThestateSafeRoutestoSchoolCoordinatorpositioniseligible,butnotrequired.
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EligibleUses:RecreationalTrailsProgram
SAFETEALU 2012MAP21
RecreationalTrails
Dedicatedfunding:
Dedicatedfundingbasedonrecreationalfueltax
Roughly$85millionperyear
Features:
Standaloneprogramwith20%localfundingmatch
Fundsobligatedforspecifiedtrailuses30%motorizedtrails,30%non
motorized,40%multiusetrails
AdministeredthroughDOTandstateDNRs
RecreationalTrails
DedicatedFunding:
Levelfunding
Features:
GovernorscanoptouteachyeariftheycontacttheSecretaryoftheUS
DOT30dayspriortoapportionments
TheprogramiseligibleundertheTransportationAlternativesProgram
ProjectsarealsoeligibleundertheSurfaceTransportationProgram
Analysis
Ifagovernordoesnotoptout,thisprogramwillcontinuetofunctionasitdoesincurrentlaw.It
willbeimportantforadvocatestoaskgovernorstokeeptheprogram.
Governorshavetheoptiontooptout eachyear.
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EligibleActivities:Other
SAFETEALU 2012MAP21
Othereligibleactivities
N/A
Othereligibleactivities
Planning,designing,orconstructing
boulevardsandotherroadwayslargelyin
therightofwayofformerInterstate
Systemroutesorotherdividedhighways.
Analysis
ThenewtypesofroadprojectsthatareeligibleundertheTransportationAlternativesProgram
couldconsumeanentirestate'sbudgetforoneormoreyears.
Thelocalcontrolaspectsofthistransportationbillmakeitlesslikelythataprojectofthislarge
scalecouldcompeteforthelimitedavailablefunds.
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ProgramMechanics:GrantProgram
ThisisthepartoftheprogramamendedbytheCardinCochranagreement.
SAFETEALU 2012MAP21
GrantProgram
Eachprogramhaditsownmethodfor
distributionoffunds.
ForTransportationEnhancements,most
statescouldsetupthegrantprogram.
ForSafeRoutestoSchool,moststatesheld
statewidecompetitions,butafewused
regionaldistributionorstatemanaged
implementation.
GrantProgram
Allfundsmustgothroughagrantprogram.
Thebilllimitswhichentitiesareeligibleto
apply.
50%ofFundingbyPopulation
DOTsmustdistributefundsaccordingtothe
shareofpopulationwithinthestate:
Forareaswithapopulationover200,000,fundswillbesuballocated
toMPOs.TheMPOsmustthenruna
grantcompetitionwithinitsarea.
Forareaswithapopulationbetween5,000and200,000,thestatewill
distributethroughacompetitivegrant
program.
Forareaswithapopulationunder5,000,thestatewilldistributethrough
acompetitivegrantprogram.
Noneofthesefundsmaybetransferredby
theDOT.
50%ofFundingbyGrantProgram
TheDOTsarerequiredtorunagrant
programtodistributetheother50%.Only
eligibleentitiesmayapply.StateDOTsare
noteligible.
StateDOTsmaytransferallofthispotto
otherhighwayuses.Iftheydo,therewillbe
nograntprogram.
EligibleEntities
N/A
EligibleEntities
1. Localgovernments2. Regionaltransportationauthorities
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3. Transitagencies4. Naturalresourceorpublicland
agencies
5. Schooldistricts,localeducationagencies,orschools
6. Tribalgovernments7. Anyotherlocalorregional
governmentalentitywith
responsibilityfororoversightof
transportationorrecreationaltrails
(otherthanametropolitanplanning
organizationorastateagency)that
thestatedeterminestobeeligible,
consistentwiththegoalsofthis
subsection.
Analysis
WhilethefinalbillretainsthehalfofCardinCochranthatsuballocateshalfoffundstoMPOs
andlocalareas,itallowsstatestooptoutofthehalfofTAfundsthataremadeavailabletolocal
entitiesthroughastateruncompetitivegrantprogram.
Byrequiringacompetitivegrantprogramandlimitingtheentitiesallowedtoapplyforthat
funding,thisprovisioniswrittentolimittheamountoffundsgoingtolargescalestatepriorities
likeroadsandNEPAcompliance.
Suballocating50%bypopulationensuresthatlocalcommunitiesofallsizeswillgetashareofTA
funding.
TheMPOcompetitionensuresthatentitieswithinanMPOareacanapplyforashareofMPO
funding,andensuresthestateDOTisnotthesoledecisionmakeronfundingpriorities.
The50%offundingdistributedbyastaterungrantcompetitionisatsignificantriskgiventhe
fulltransferabilityofitsfunds.Advocateswillneedtoworktoensurethatstatesretainthese
funds.
Eligibleentitiesinthenewbillweredefinedtoensurethatcurrentusersofthethreebikingand
walkingprogramscouldcontinuetobenefit.Stateagenciesarenoteligibletoapplyfor
TransportationAlternativesProgramfunding.
Thefollowingchartillustrateshowbikingandwalkingfundswillbedistributedunderthenew
law.
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Chart:DistributionofTransportationAlternativesfunds
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MandatorySidepathClause
SAFETEALU 2012MAP21
MandatorySidepathLaw
None
MandatorySidepathLaw
Bicyclistsareprohibitedonfederallyowned
roadsthathaveaspeedlimitof30miles
perhourorgreaterifthereisanadjacent
pavedpathforusebybicycleswithin100
yardsoftheroad,unlesstheSecretaryof
therelevantfederallandmanagement
agencydeterminesthatthebicyclelevelof
serviceonthatroadwayisratedBor
higher.
Analysis
Mandatorysidepathlawswereoncecommoninstatevehiclecodes.Theysaidthatwhenaroad
hasaseparatebikepathorbiketrail,bicyclistsmustusethepathandnottheroad.
Bymovingtobanbicyclistsoncertainnonhighwayroads,thisclausecouldsetadangerous
precedentforfederalbikepolicy.
ThisprovisionwasfirstincludedintheSenatetransportationbillwithouttheadditionofthe
BicycleLevelofServiceclause.Theadditionofthisclausenowmeansthatstatescanhavesome
outtoenforcingthelawandthatadvocateshaveanopportunitytodemonstratethatthe
restrictionshouldnotapplytotheirroads.
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