EXECUTIVE SUMMARY...................................................................................................................iii
SECTION 1: PUBLIC INVOLVEMENT THEMES ...................................................................1
SECTION 2: COMMUNICATION STRATEGIES ....................................................................5
SECTION 3: INNOVATIVE TECHNIQUES ..............................................................................7
SECTION 4: INFORMATION TECHNOLOGY.........................................................................9
APPENDIX A: BENCHMARKING STUDY TEAM MEMBERS...........................................11
APPENDIX B: PARTNER PROFILES .....................................................................................13
APPENDIX C: RELEVANT GOVERNMENT PUBLICATIONS ..........................................15
APPENDIX D: DETAILED SITE VISIT SURVEY COMPENDIUM ..................................17
Background
The United States Department of Transportation, Federal Highway Administration (FHWA), has sponsored, in cooperation with the Florida Department of Transportation (FDOT), a benchmarking study entitled Public Involvement in the Development of the Long-Range Transportation Plan. The study was designed to provide metropolitan planning organizations (MPOs) with new tools and innovative techniques to enhance their public participation and outreach during the long-range transportation plan development process.
As required by federal law (Code of Federal Regulations Title 23, Part 450.322), MPOs must prepare a transportation plan addressing at least a 20-year planning horizon. The plan should include both long- and short-range strategies and actions that lead to the development of an integrated intermodal transportation system facilitating the efficient movement of people and goods. The transportation plan is reviewed and updated at least triennially in non-attainment and maintenance areas, and at least every five years in attainment areas, to confirm its validity and consistency with current and projected transportation and land use conditions and trends within the forecasted time period.
A major element in the long-range transportation planning process is providing opportunities for the public to comment and actively participate in the planning and decisionmaking process.
The MPOs in the state of Florida have expressed frustration over the difficulty of getting the public to participate in the process. For the most part, the public involvement activities at this long-range level are not widely attended. The MPOs have had more success in engaging the public at a more project-specific level.
Therefore, the Florida Division of the Federal Highway Administration, in cooperation with FDOT, offered to conduct a special study to research those organizations that exhibit exemplary public involvement techniques.
The research approach that was used is called bench-marking. As defined in Quality Digest (1992)
Benchmarking is the practice of being humble enough to admit that someone else is better at something and being wise enough to try to learn how to match and even surpass them at it.
One of the main themes of benchmarking is that organizations must first examine their own processes, products, and services to discover where there are successes and areas for improvement.
The methodology used in this study was adopted from the American Productivity and Quality Centers four-phase approach. These phases are planning, collecting, analyzing, and adapting information from the team and partner organizations to discover and highlight best practices to share nationwide.
During the planning stage, a scope proposal was developed based on feedback from participating MPO member organizations, FDOT, and FHWA. These organizations were recognized as benchmarking partner organizations, as identified in appendix A. Training sessions on the benchmarking process were conducted during this phase in Tallahassee, Orlando, and Ft. Lauderdale. The training focused on the key principles of benchmarking and code of conduct, and any issues of concern about the benchmarking study.
Secondary research validating the topic and identifying best practice organizations was also conducted during this phase. Over 200 organizations were identified as possible benchmarking best practice organizations and were sent a brief screening questionnaire. The benchmarking partners then selected six best practice organizations; these are described in appendix B.
Appendix C has been provided in the report as a reference guide to relevant government publications for use in transportation planning and public involvement activities.
The data collection phase included obtaining written information on processes and conducting site visits to gather additional information and validate findings. All
six best practice organizations and the participating benchmarking partners provided information responses. Information was requested in the following focus areas:
obtaining public involvement,
During the analysis phase, the data from the detailed site visit were compiled in a compendium report, which is included here as appendix D. Feedback from benchmarking partners and best practice organizations revealed several overarching principles that have led to success in public involvement as organizations plan for the long term.
Widely used communication strategies included: newsletters,
These include:
These include:
The benchmarking partners met in October 2001 to discuss the studys key findings at a Knowledge Transfer Session (KTS). The Florida MPOs used this event to review their public involvement processes and determine to how best adapt the best practices for improving their public involvement program. Additionally, the bench-marking partners agreed to publish this report and share its findings nationwide. This effort supports FHWAs metropolitan capacity-building programs initiative to educate and provide technical assistance to metropolitan planning organizations.
Section 1:
ll benchmarking partners agree that education is a continuous theme throughout the long-range planning process. Educating the public on, and obtaining its involvement in, planning are mutually reinforcing activities. The techniques used for this education process vary widely.
Several best practice organizations found that involving key stakeholder groups from the onset of the process was essential to creating buy-in for the long-range transportation plan.
One best practice organization defined key stakeholders as local and state officials, planners, business leaders, conservationists, developers, landowners, and church and citizen groups. Many benchmarking team members added to this grouping anyone in or around their adjacent jurisdictions.
Some best practice organizations have found tremendous value in obtaining assistance from media resources. These resources include television (local and government access); radio (via advertise
One best practice organization suggested checking with television and radio resources to find out the time of the year when advertising rates are lowest so as to best lever-age financial resources. This organization also noted that it was helpful to issue special invitations for the media to attend an information-sharing meeting? similar to a press conference? whose purpose is to disseminate information about a project or program. This special meeting helps maximize staff resources by providing information to all media at one time.
Another best practice organization stressed the importance of airing information on the radio at different times throughout the day. This organization suggested using one script with several trailers or public service announcements, each indicating the type of public feed-back desired. One organization used a scrolling message across the bottom of the television screen to advertise a meeting.
One best practice organization sends a quarterly calendar of events to the local media to keep them informed of upcoming events. Many best practice organizations and benchmarking partners found that keeping the media involved is a low-cost way to publicize a project.
Best practice organizations
ment.
speak to the public are included.
One best practice organization tackled transportation in the context of a clean air initiative. The organization collaborated with an asthma organization and various gas stations. A stop at the click program was instituted to encourage customers to stop pumping gas when the pump clicked, and thereby avoid gas spillage and promote cleaner air. Another best practice organization also teamed with gas stations; this one had them display posters promoting public involvement activities. The
organization also posted signs along affected project areas, advertising public involvement events.
One best organization developed a partnership with the American Lung Association and several transportation, environmental, and health groups to send a message to the public that everyone needs to work together to reduce air pollution.
One best practice organization initiated Our Town events, where the city devoted a day for the community to address different issues of importance to the locality. The events were festive and informative, and was considered a success.
Piggybacking on local events and entities is another method of collaboration. Almost all best practice organizations regularly staff information booths at local events such as neighborhood and community fairs. Several benchmarking partners and best practice organizations staff displays with project information at key employment sites or local shopping malls.
Best practice organizations believe that their planning efforts do not stop at their jurisdictional lines. Many collaborate and conduct public involvement activities with adjoining jurisdictions.
Another successful collaborative initiative for soliciting feedback was used by one best practice organization in compiling its Year 2040 long-range plan. This effort involved partnering with a coffee shop chain and holding Coffee Talks for the public. Similarly, another best practice organization plans local Coffees, with neighborhood associations sponsoring in-home meetings with small groups of neighbors to discuss a project of particular concern to the citizens. This best practice organization trains individuals as facilitators to manage these meetings. Invitations are usually extended by the host of the coffee and are held during weekdays, evenings, and weekends at the convenience of the target audience.
One best practice organization made multiple copies of a video detailing its growth strategies; it then partnered with a video chain to distribute free copies of the video to store customers.
As with collaboration, the issue here is to bring the topic to the individual in a meaningful way. Collaboration makes meaning through combined perspectives; personalizing makes meaning by reaching out to the specific individual.
One best practice organization made it personal by conducting door-to-door canvassing. Public involvement staff and/or their volunteers go door-to-door to meet residents and business owners to ensure that they know about a project and have the opportunity to receive more information or to become more involved in the project.
Another best practice organization individually signs invitation and thank you letters. In addition, this organization makes itself available to anyone interested in the long-range transportation plan. The organization does not use voice mail, and, by using a planner on call methodology? whereby a transportation planner is assigned each day to answer all calls? it provides the public with out-standing customer service and information.
Some best practice organizations and benchmarking part
zation always tries to provide some type of refreshments at its meetings. Two other
organizations provide small mementos for individuals who provide responses to survey questionnaires.
A majority of the best practice organizations agreed that traditional public meetings and meeting places are not particularly conducive for soliciting active participation from the public. They have instead turned to more innovative settings, where participants can feel they affect the decisionmaking process by offering input that adds value and substance.
Locations of meetings have been adjusted to better attract and accommodate participations. For example, best practice organizations and benchmarking partners have held meetings in such nontraditional locations as schools, churches, senior centers, libraries, fairgrounds, fire stations, and hospitals.
Similarly, times of meetings have been varied to accommodate more individuals. One best practice organization communicated with and received feedback from factory workers by holding discussions at the 4 a.m. graveyard shift. This organization also communicated with an affected neighborhood by holding discussions following church services in the area.
One component of the long-range transportation planning process is identifying the needs of low-income and minority populations and assessing how the benefits and bur-dens of the transportation system are distributed across these groups. Organizations are employing various methodologies to define these local communities.
Many benchmarking partners have identified the community impact assessment process as a method for defining communities and conducting community outreach. Community Impact Assessment is an assessment process to address proposed transportation actions on communities, neighborhoods, and people. Other best practice organizations and benchmarking partners have relied on community-based or social service organizations as sources of information.
One best practice organization has used church groups, minority publications, and chambers of commerce to help identify needs of low-income and minority populations. This organization also collects and tracks school enrollment information and subsidized school lunch program data.
Every best practice organization and benchmarking partner evaluates, either formally or informally, their public involvement techniques. The most commonly used tool for evaluation is the survey questionnaires. Most best practice organizations and benchmarking partners used surveys to seek input about elements of the long range plan or the effectiveness of a public meeting.
Some best practice organizations used key stakeholder interviews to obtain input on the success of their process. A few organizations developed yearly evaluations to ascertain the effectiveness of their public involvement strategies.
One best practice organization stated that it supplies comment sheets at every meeting attended by the public. Not only does this provide feedback about the meeting and the process, but it also compiles names and addresses to be added to the organizations mailing list.
Section 2:
est practice organizations and benchmarking partners are employing various communications strategies to actively engage the public in the planning process.
These strategies are selected after careful examination of the characteristics and culture of the local community. Organizations have recognized that the characteristics of the populations of our cities are as diverse as our geographical terrain. To meet their diverse communication needs and target audiences, innovative and creative approaches are sometimes needed.
The benchmarking study identified several communication strategies for obtaining public involvement, including the following:
Newsletters are a highly popular method for communicating with the public. Most study team members and best practice organizations use a print and/or electronic newsletter issued generally on a monthly or quarterly basis. The newsletter outlines organization activities and promotes public involvement opportunities. One best practice organization uses its newsletters to highlight how its staff practices what they preach.
Most study organizations have some type of citizen advisory council, committee, or board that actively participates in the development of the long-range transportation plan. The membership of most of these committees is diverse and represents the jurisdictions they serve.
Committee members are either elected or appointed to serve. Many organizations provide tool kits or other educational materials to committee members to help familiarize them with the planning process.
Several study organizations reported that they rely on these committees in a variety of ways for support of their public involvement initiatives. For example, many best practice organizations have developed a speakers bureau where they prepare presentation materials and coordinate speaking engagements for committee members? and local elected officials, as well? to discuss transportation planning initiatives at civic and community groups or clubs.
Workshops are another popular method for eliciting public comment. The specifics of workshop logistics and activities vary widely. One best practice organization sends personal invitations to participants; another sends e-mail reminders to workshop attendees.
Many best practice organizations do not have in-house staff available to facilitate their workshops; instead, they make use of volunteers. To enrich and enlighten work-shop proceedings and participants with useful perspectives, they draw these volunteers from the ranks of allied organizations (e.g., the American Institute of Architects) or adjacent counties and municipalities. In this way, related information and quality of life issues are brought into the activities.
Best practice organizations and many benchmarking team members have published educational and informational documents, covering a broad range of writing and dissemination styles and approaches. For example, one bench-marking team member developed a cartoon book for adults as a fun and humorous way to explain how the long-range plan is developed. Another best practice organization distributed its public involvement and transportation-related information by handing out brochures at local sporting events.
Another best practice organization created project-specific
workbooks that include maps, options, and worksheets. Participants are asked to complete the workbook with their family members and bring it to an open house to review technical data, compare options, and assess the pros and cons and trade-offs. If participants cannot attend the open house, they are asked to call a hotline number where they can request Tech Facts? technical summaries? that are then mailed to the participant.
Most of the study members and best practice organizations publish an informational document summarizing their long-range transportation plans. One member titled its summary document The Livable Community Reinvestment Plan. The material was then presented, not as multi-pages of text, but as a large one-page overview of the organizations 2020 Transportation Plan.
Another best practice organization distributes a publication, Getting There, that includes a series of sub-regional publications that further identifies projects/programs for its 20-year regional transportation blueprint for the county.
The annual report, like the newsletter, is another popular publication used by most study members to convey information to the public. Generally, this report is widely distributed and reports the years progress and projected activities.
Many of the best practice organizations and benchmarking partners use surveys to gauge public opinion and the effectiveness of their organizations outreach activities. These surveys may be conducted over the phone, in per-son, or via the Internet.
Using a related technique, one best practice organization solicits public involvement by randomly cold calling residents and asking them if they would participate in events.
Section 3:
ome benchmarking partners and best practice organizations have used games to elicit public involvement. Games were used in settings such as, transportation day at the mall, workshops at senior centers, and public meetings. These games include the following:
One best practice organization instituted a Transportation InfoMobile. This mobile interactive exhibit, housed in a modified 40-foot passenger bus, traveled the local area, bringing information about transportation options directly to communities. The InfoMobile was filled with interesting interpretive exhibits and graphics, multi-media computers, brochures, and hands-on activities for young and old; for added interest, murals were painted on the exterior of the bus. Through these devices, the InfoMobile involved and informed people about the many transportation issues and activities in their area.
Tours get the people to the place, allowing them to experience
sites first-hand and up close. One best practice organization
uses a coach bus to take public involvement
tour of selected sites, followed by
an on-site discussion of relevant
issues. Another best practice
organization holds Walking
Tours, at which citizens and
local officials meet at a site and
walk around and discuss issues
concerning possible changes to the area.
Computer simulations allow planners and decisionmakers ? and the public? to envision alternative scenarios for specific locations. Such simulations have been used most success-fully by many team members and best practice partners. Pictures taken at specific locations are modified based on the application of various transportation planning scenarios. Citizens and elected officials can thus see and evaluate how different alternatives will work in affected areas before any changes are actually made.
The concept of reaching communities and neighborhoods through their local schools was a popular technique used by many best practice organizations. One organization created a Planning for a Livable Future lesson plan for area teachers. The lesson plan addresses land use, transportation, environment, and population/housing.
Another best practice organization hosts tours of its facilities for local schools. During the tour, transportation issues are discussed and relevant materials distributed.
Section 4:
echnology creates new media for soliciting public involvement in the development of the long-range transportation plan.
Some benchmarking partners and best practice organizations are using geographic information systems (GISs) along with the recent census or other data to capture project communities. One best practice organization has placed a GIS on every transportation planners computer. This enabled every planner with the opportunity to use GIS as a tool for researching databases and
Best practice organizations and benchmarking partners are preparing sophisticated databases for use in direct mail and e-mail. These databases allow for rapid electronic sorting of project-specific information so that the right citizens and communities can be contacted for each project and public involvement activity.
The databases allow for collection and compilation of large amounts of useful information, including mailing lists. One best practice organization suggested corresponding with other civic associations to ask them to distribute information to their members. This effort enables this best organization to reach a wider audience than just relying on their own databases.
Websites and e-mail are being used to post information, like
newsletters and organizational information, as well as gather
information and promote public involvement activities.
All best practice organizations maintain a website,
although their interactive ability varies. Some organiza
tions use the Internet to post reports, meeting minutes, and
advertisements, while others, may use it as another method
to solicit input via surveys and comment forms. One best
practice organization recommended including a links
section on websites as a way to lead users to organizations
designed a survey that citi
zens could access through a
website address or by tele
phoning a special number.
A consultant was retained
for managing this activity, which included provided a sum
mary report of the comments. The activity was deemed so
successful that the organization plans to use this type of
public comment solicitation for future projects as well.
Benchmarking Study Manager: Lori Susan Byrd, Corporate Management Specialist Federal Highway Administration, Florida Division
Subject Matter Expert: Sabrina David, Transportation Planning Specialist Federal Highway Administration, Florida Division
Editor: Nita Congress
Benchmarking Organizations: There were several Federal, state and local agency personnel that contributed to this study. Those listed below are the primary study contacts.
Federal Highway Administration, Florida Division
James St. John, Division Administrator
Robert Wright, Assistant Division Administrator
Erik Steavens, Planning and Intermodal Coordinator
Maxine Robinson, Administrative Operations Assistant
Denise Shoaf, Secretary
Federal Highway Administration, Headquarters
Ashby Johnson, Office of Metropolitan Planning and Programs Fred Jones, Corporate Management
Florida Department of Transportation
Buddy Cunill, Environmental Management
Lee Ann Jacobs, Environmental Management
Stacie Blizzard, Policy Planning
Ken Leuderalbert, Quality Initiatives Office
Johnny Limbaugh, District 1
Joye Brown, District 2
Mary Jean Weekley, District 3
June Weeks, District 3
Tammy Campbell, District 4
Michael Szunyog, District 5
David Korros, District 6
Joey Gordon, Turnpike
Metropolitan Planning Organizations
Howard Glassman, Executive Director
Metropolitan Planning Organization Advisory Council
Bob Kamm, Brevard County Metropolitan Planning Organization
Chris Heshmati, Broward County Metropolitan Planning Organization
Lisa Beever, Charlotte County - Punta Gorda Metropolitan Planning Organization
Robert Herrington, Collier County Metropolitan Planning Organization
Denise Bunnewith, First Coast Metropolitan Planning Organization
Mike Zeigler, Fort Walton Beach Metropolitan Planning Organization
Marlie Sanderson, Gainesville Metropolitan Planning Organization
Hubert Pascoe, Hernando County Metropolitan Planning Organization
Rich Clarendon, Hillsborough County Metropolitan Planning Organization
David Hunt, Lee County Metropolitan Planning Organization
Sivani Kantamneni, Martin County Metropolitan Planning Organization
Muffet Robinson, METROPLAN Orlando
Clinton Forbes, Miami - Dade County Metropolitan Planning Organization
David Karwaski, Metropolitan Planning Organization of Palm Beach County
Jeff Shrum, Ocala/Marion County Metropolitan Planning Organization
Nancy Model, Panama City Metropolitan Planning Organization
Ali Atefi, Pasco County Metropolitan Planning Organization
Gary Kramer, Pensacola Metropolitan Planning Organization
Linda Everett, Pinellas County Metropolitan Planning Organization
Jill Weinischke, Polk Transportation Planning Organization
Michael Maholtz, Sarasota/Manatee Metropolitan Planning Organization
Cheri Fitzgerald, St. Lucie County Metropolitan Planning Organization
Greg Burke, Tallahassee - Leon County Metropolitan Planning Organization
Lois Bollenback, Volusia County Metropolitan Planning Organization
Partner Organizations: Community Planning Association Des Moines Area Metropolitan Planning Organization
Envision Utah
Metro Oregon
Operations Management International, Inc.
Wilmington Area Metropolitan Planning Council
Community Planning Association is a regional planning organization for Treasure Valley, Idaho. Its mission is to:
provide a forum to address and prioritize region-wide issues,
serve as a catalyst to ensure local government involvement in building region-wide consensus,
develop and support policies to achieve region-wide solutions, and
maintain resources to support efficient region-wide planning and development.
The Des Moines Area Metropolitan Planning Organization serves as the formal transportation planning body for the Des Moines metropolitan area. This organization cooperates with many agencies in fulfilling its transportation planning responsibilities. These agencies include the Federal Highway Administration, the Federal Transit Administration, the Iowa Department of Transportation, the Des Moines Metropolitan Transit Authority, the Central Iowa Regional Transportation Planning Alliance, 15 member communities, and three member counties.
Formed in 1997, Envision Utah is a public-private community partnership dedicated to studying the effects of long-term growth in the Greater Wasatch Area of northern Utah. Sponsored by the Coalition for Utahs Future, Envision Utah and its partners have? with extensive input from the public? developed a publicly supported growth strategy that will preserve the states high quality of life, natural environment, and economic vitality during the next 50 years. The Envision Utah partnership includes state and local government officials, business leaders, developers, conservationists, landowners, academicians, church group members, and general citizens. This unique and diverse coalition is working together to implement a common vision for the Greater Wasatch Area as it faces the prospects of immense growth in the coming decades.
Metro Oregon provides a regional forum where cities, counties, and citizens can resolve issues related to growth? things such as protecting streams and open spaces, transportation and land-use choices, and increasing the regions recycling efforts. Metro was formed in 1979, when voters of the region approved the transition from an appointed council of governments to an elected body. In 1992, voters approved a home-rule charter that gave Metro primary responsibility for regional land use and transportation planning. Metro serves more than 1.3 million residents in Clackamas, Multnomah, and Washington Counties and the 24 cities in the Portland, Oregon, metropolitan area. Metros primary mission is to manage growth in this region; its other responsibilities include solid waste disposal, and operation of arts and cultural facilities, parks, and the zoo.
Operations Management International, Inc.
Operations Management International, Inc. (OMI), a member of the American employee-owned CH2M HILL Companies, Ltd., offers complete infrastructure development, financing, design, and operations and maintenance services. Headquartered in Denver, the company manages 170 water and wastewater facilities in the Americas, Middle East, and Asia. In the United States, the company manages facilities in 30 states. OMI received the Malcolm Baldrige National Quality Award in April 2001.
The Wilmington Area Planning Council (WILMAPCO) is the designated metropolitan planning organization for the region that includes New Castle County, Delaware, and Cecil County, Maryland. The WILMAPCO staff is comprised of engineers, planners, transportation analysts, public outreach coordinators, and administrative staff.
Several useful publications are listed here for your reference in utilizing public involvement in the development of transportation planning. These publications are avail-able on-line at www.fhwa.dot.gov.
The Transportation Equity Act for the 21st Century was enacted June 9, 1998, as Public Law 105-178. TEA-21 authorizes the Federal surface transportation programs for high-ways, highway safety, and transit for the 6-year period 1998-2003.
Intermodal Surface Transportation Efficiency Act of 1991
1997 Federal Highway Cost Allocation Study - Final Report
1999 Status of the Nations Highways, Bridges and Transit: Conditions and Performance - Report to Congress
21st Century Transportation Infrastructure Symposium: Linking Regional Planning and Operations for Effective ITS Deployment: Proceedings
A Citizens Guide to Transportation Decisionmaking
Connecting America1999 Report to the Nation
Contribution of Highway Capital to Industry and National Productivity Growth, September 1996
An Evaluation of the TE-045 Innovative Finance Research Initiative - Final Report Excellence in Highway Design - 1996 Biennial Awards
Federal Highway Administration 1998 National Strategic Plan
FHWA FY2000 Performance Plan
FHWA FY2000 Performance Plan -Appendices I & II
FHWA FY2002 Performance Plan & FY2000 Performance Report
Financing Federal-Aid Highways
A Guide to Federal-Aid Programs and Projects
Highway Trust Fund Primer
Meeting the Customers Needs for Mobility and Safety During Construction and Maintenance Operations
Productive Highway Capital Stock Measures, January 1999
Program Guide: Utility Adjustments and Accommodation on Federal-Aid Highway Projects
Public Involvement Techniques for Transportation Decision-making
Report to Our Customers: Who We Are and What We Do
Value of Information and Information Services
DETAILED SITE VISIT
SURVEY COMPENDIUM