Notice

This document is disseminated under the sponsorship of the 

U.S. Department of Transportation in the interest of information 

exchange. The U.S. Government assumes no liability for the 

use of information contained in this document.

This report does not constitute a standard, specification, or 

regulation.

Quality Assurance Statement

The Federal Highway Administration provides high-quality 

information to serve Government, industry, and the public 

in a manner that promotes public understanding. Standards 

and policies are used to ensure and maximize the quality, 

objectivity, utility, and integrity of its information. FHWA 

periodically reviews quality issues and adjusts its programs 

and processes to ensure continuous quality improvement.
1

A Guide to

 Transportation

Decisionmaking

1

Introduction

ave you ever wondered how decisions

are made about the transportation

projects that aect your life? How do

government ocials decide where to put a

bus stop, road, or bridge? How are these and

other transportation projects planned? And

how can you make sure your opinions are

heard and considered by residents, planners,

designers, and elected ocials?

H

The Federal Highway Administration (FHWA) 

and Federal Transit Administration (FTA) 

created this guide to answer these and other 

transportation project-related questions. We 

hope this guide will help you understand how 

transportation decisions are made at the 

local, State, and national levels; and that you 

will take advantage of the opportunities 

provided to contribute your ideas. We believe 

that the better the public understands the 

transportation decisionmaking process, the 

more certain it is that the transportation 

system will be safe and ecient, and that the 

planning process will be responsive to public 

needs and concerns about their communities 

and the natural environment.

The Federal Highway 

Administration and 

Federal Transit Administration are agencies of 

the U.S. Department of 

Transportation (USDOT). 

USDOT is the department in the executive 

branch of the Federal 

Government that 

provides guidance, 

policy, and funding for 

transportation by air, 

highways, rail, transit, 

and water.
2

How the Decisionmaking Starts

F or many of us, transportation projects seem to come from 

nowhere. Others may vaguely remember a project "promised" 

years ago. Too often, people develop negative impressions of 

the process by which transportation projects come into being 

because of the lack of information on how these decisions are made.

Try comparing the transportation decisionmaking process to the 

creative process for producing a piece of pottery. The potter begins 

with a mass of clay and an idea for the nal creation. As the mass 

begins to take shape, the potter makes necessary changes and 

adjustments by adding some clay here and there. Similarly, you, the 

public, can participate by shaping the process and adding your ideas 

to make the creation as beautiful and useful as possible. We at FHWA 

and FTA look forward to your involvement throughout the 

transportation-planning process—from the early formative stages in 

long-range visioning through nal, short-range project planning and 

development activities.

Transportation aects nearly every aspect of a person's life. You can 

help FHWA and FTA ensure that the U.S. transportation system will 

remain one of the safest, most ecient, and most environmentally 

friendly systems in the world! If you have any questions about this 

guide, please contact FHWA, Oce of Planning, at 202-366-0106 or 

FTA, Oce of Planning and Environment, at 202-366-4033.
35

This Guide discusses 

only the federally 

required process for 

transportation decision-

making. The Federal role 

is to provide funds and 

standards for State and 

local decisions. States, 

Metropolitan Planning 

Organizations, and 

transit operators make 

transportation invest-

ment decisions. After 

reading this Guide, be 

sure to investigate the 

additional State, 

regional, and local rules 

and requirements that 

aect transportation 

decisions in your local 

region. 
4

The Basics of Transportation

Decisionmaking

magine the various modes of 

ground transportation:

train, car, bicycle,wheelchair, 

or walking. Now, think about your

favorite way to travel. Which would 

you choose to get to your

destination? Are you satised with

your choices? Will you experience

any problem using this method? 

Would you like more options?

L Your home.

L Your work.

L Your errands.

L Your school.

L Your vacation or anywhere else.

I

The process of identifying 

opportunities to improve 

transportation systems to improve 

the access and mobility of people 

and businesses is called 

transportation planning.

Transportation planners are 

professionals who study and 

recommend the best ways to 

operate and manage the 

transportation system eciently 

both today and in the future to get 

you to . . .
7

Transportation professionals place a high priority on

getting you to and from your destinations safely and

eciently. They are also committed to preserving our

communities and neighborhoods, and keeping our

air and water clean.

5

Transportation decisionmaking looks for ways to solve 

current and anticipated transportation problems 

while avoiding future problems. Transportation 

planners think about the system that exists today and 

the system that will exist 5, 10, and even 20 years from 

now. To develop the best transportation choices, 

transportation planners reach out and involve many 

dierent organizations, for example those that 

provide housing, schools, jobs, parks, and care for our 

environmental resources.
6

The Government and Transportation

Decisionmaking

ransportation decisionmaking is carried out at

several dierent levels government:

L State Departments of Transportation (State DOTs) are the 

L Metropolitan Planning Organizations (MPOs) are 

largest units of government that develop transportation plans 

and projects. They are responsible for setting the transportation goals for the State. To do so, they work with all of the 

State's transportation organizations and local governments as 

well as other interested parties. They are responsible for 

planning safe and ecient transportation between cities and 

towns in the State and connecting to neighboring States. 

They have overall responsibility for the safe operation of their 

State’s transportation system.

organizations created and designated to carry out the 

metropolitan transportation-planning process. An MPO may 

have "council of governments," "regional planning commission," or some similar phrase in its ocial name. MPOs are as 

dierent as the individual metropolitan areas they represent. 

A policy board, which is comprised of local elected ocials, 

sets the MPO's policy. Other groups, such as nonprot, 

community based, and environmental organizations, can 

inuence the direction an MPO follows. 

T
7

L Local governments carry out many

transportation-planning functions, such as

scheduling improvements and maintenance

for local streets and roads.

L

L

Transit agencies are organizations that 

provide transportation for the public. 

Public transportation includes buses, 

subways, light rail, commuter rail, 

monorail, passenger ferryboats, trolleys, 

inclined railways, and people movers.

Federal Government, represented by the U.S. 

Department of Transportation (USDOT), 

oversees the transportation planning and project 

activities of the MPOs, State DOTs, and transit 

agencies. The USDOT also provides advice and 

training on transportation topics, ranging from 

pavement technology to ecient design and 

operations of highway and transit systems. The 

USDOT also supplies critical funding needed for 

transportation planning and projects. At least 

every 4 years, the USDOT approves a program of 

projects submitted by the State DOTs; the 

program includes all projects proposed for 

Federal funds, along with any other regionally 

signicant project(s) involving FHWA or FTA, 

regardless of how it is funded.

INTERESTED PARTIES

The Federal definition of “interested parties” 

includes citizens, affected public agencies, representatives of public transportation employees, freight 

shippers, providers of freight transportation 

services, private providers of transportation, 

representatives of users of public transportation, 

representatives of users of pedestrian walkways and 

bicycle transportation facilities, representatives of 

the disabled, and other interested parties.

(23 U.S.C. 134 and 135, and 49 U.S.C. 5304) 
8

Dierent Transportation Plans and

Programs

efore transportation planners start their work,

the residents and ocials of a region or a State

must have a long-term vision for

transportation in that area. A vision provides broad

goals for what the region or State will look like

and reects what is important for the future.

To develop a vision, consider the

characteristics of your region and State, 

and how you expect these characteristics

to change over the next several years. 

Here are some characteristics to consider:

L Projected population growth.

L Projected economic changes.

L Current and future transportation

modes and their unique needs

(air, bicycle, bus, rail, roads, pedestrian,

L Safety.

L Maintenance, operations, and

management of transportation

facilities.

L Preservation of the human and natural

environment.

L Freight movement.

B

and water)

L Community livability and quality of life.

Some transportation 

plans focus strictly on 

transportation, while 

others are broader, with 

transportation included 

as just one part of a larger 

plan for green space, 

parks, and other land 

uses. Transportationplanning processes often 

are complex because they 

cover entire State and 

metropolitan transportation systems. A State plan 

will also include regional, 

metropolitan, and other 

local transportation plans.
 9

Once a region or State has reviewed and 

established goals for its vision, it has also 

developed a foundation for improvements 

to that area’s transportation system. 

Long-range plans outline transportation 

solutions that cover 20 or more years. 

Solutions might include a new trac 

signal system, a pedestrian pathway, a 

new bus line, or a completely new road 

project.
 10

Putting the Plans in Place

ransportation planners help the

public and elected ocials translate

the vision into Long-Range

Transportation Plans (LRTP). Planners look at

dierent transportation

alternatives and work with the

T

public and other agencies to 

select those alternatives that make 

the most sense for an area and 

best use limited funds. Planners 

often use sophisticated computer 

models to predict future travel, 

help facilitate public discussions, 

and solicit the opinions of the 

public.

After regions or States develop 

their long-range transportation 

plans, the MPO develops its 

Transportation Improvement 

Program (TIP), and the State 

develops its Statewide 

Transportation Improvement 

Program (STIP). These short-term 

improvement programs are 

Planning
11

Plan Use by Organization*

Vision Long-Range TIPs Project

Organization Planning Plans Planning

State DOTs    

MPOs   

Transit Agencies   

City/Local Trans. Dept.  

*Plan development is the collective responsibility of the MPO, transit operator and State DOT.

Project planning may be done by these and other organizations.

The following chart illustrates which organizations tend to use the four types of plans 

and projects described previously:

required to be updated at least once every 4 

years. The TIP and STIP both contain 

individual transportation improvements and 

projects. All federally funded projects must 

be part of an improvement program in order 

to be implemented and receive Federal 

funds.


14

Funding Transportation Projects

B

12

 years of the long-range transportation plan. Just as people budget funds 

for short- and long-term family and home expenses, MPOs and States plan 

funding for specic transportation projects. Since TIPs and STIPs describe 

the funds needed to make these transportation improvements possible, 

these programs must include reasonable cost estimates and be within 

their anticipated budget.

efore improvements can be made to your area's transportation 

system, States and MPOs must identify project funds that will be 

readily available over the 4-year life of the TIP or STIP and the 20
15

Communities and the Environment 

in Transportation Planning

13

help regions and communities reach their goals. As previously mentioned, a 

project must be included in a TIP or STIP in order to receive Federal funds. In 

addition, in air quality nonattainment and maintenance areas, the Clean Air 

Act requires that transportation plans and programs must be consistent 

with the State's clean air goals.

T ransportation planning must reect the desires of communities, and 

take into account the impacts on both the natural and human 

environments. Moreover, transportation plans and programs should 
14

Your Role in the Planning Process

o how do you t into the transportationplanning process? Your role in the process is

very important. Without your input—your

ideas—State and local governments cannot develop a

full understanding of your community’s needs.

Although some people may think that transportation

ocials can gather all necessary information on their own,

that is not actually the case. You may

know information that is more

current or detailed than is

available to transportation

professionals. You may also see

things in a dierent way than

transportation ocials. This is

why it is so important for you to

be involved.

The transportation-planning

process is ongoing, so there are

several ways to make

transportation planners aware of

your needs and concerns, and

to help develop transportation

solutions. To make sure that you

are following the latest

developments, you can:

S
15

L Put your name on a mailing list to recieve

newsletters, updates, and other information

from your MPO(s) and State DOT(s).

L Attend meetings of State and regional

transportation boards.

L Provide your input on transportation

plans and programs.

L Volunteer to serve on a focus group

or advisory committee.

L Ask a transportation official to attend

L

a meeting of your Rotary Club, National 

Association for the Advancement of Colored 

People, American Association of Retired 

Persons, Kiwanis Club, school board, or other 

community or civic organization and ask that 

ocial to explain the transportation-planning 

process to you and your neighbors.

Find out what specic public-participation 

opportunities are available in your area by 

contacting your MPO, State DOT, transit 

agency, and local government agency.

Remember that vision plans, long-range 

transportation plans, and 

transportation improvement programs are 

the key documents produced during the 

transportation-planning process.
16

These documents build the foundation for 

individual transportation projects. They are all part 

of the big transportation picture and are important 

to your transportation future. Get involved!

Transportation Planning Process
179

Project Development

After transportation planning is project development, which is also 

known as the project-planning process, the environmental 

process, or the National Environmental Policy Act (NEPA) 

process. Project development occurs on individual projects, ranging in 

size from small (e.g., new lane striping) to very large (e.g., a new transit 

or highway project). Whether small or large, projects follow the 

transportation-planning process. In other words, projects must appear 

in the TIP and/or STIP; the public must have an opportunity to review 

and comment on projects; and projects must be approved by 

transportation ocials. The project-development process is critical 

because it links the planning process with the actual project location, 

design, and eventual construction and operation.
18

Goals of Project Development and the

NEPA Process

Projects that advance through a 

transportation-planning process will 

eventually be subjected to even more 

rened examination to determine how 

they might impact the community, 

particularly the natural environment as 

well as public health and welfare. Before 

any project can move forward to the 

construction phase, FHWA and FTA may 

address and assess compliance with more 

than 40 laws related to safety and the 

environment. These laws cover social, 

economic, and environmental (SEE) 

concerns ranging from community 

cohesion to the impact on threatened 

and endangered species. In order to 

successfully complete this detailed 

process, FHWA and FTA use the NEPA 

process to evaluate the SEE concerns with 

each individual project.

The National Environmental 

Policy Act of 1969 requires 

that any activity or project 

receiving Federal funding or 

other Federal approvals 

(including transportation 

projects) undergo a detailed 

analysis of potential 

impacts. Under NEPA, FHWA 

and FTA work closely with 

other Federal agencies and 

State, local, and Tribal 

governments; public and 

private organizations; and 

the public to understand 

the potential impacts of a 

project. This process 

requires stakeholders to 

strike a delicate balance 

between many important 

factors; including, mobility 

needs, economic prosperity, 

health and environmental 

protection, community and 

neighborhood preservation, 

and quality of life for 

present and future 

generations.

T he goals of the project-development 

process are to decide where a project 

will be located, what it will look like, 

and how it will function.
19

Documenting Decisions

t is important for government

ocials to carefully evaluate the

choices available to them when

making transportation decisions. Local 

governments and State DOTs are required

to document their transportation funding 

decisions. This allows the 

public to base their input on

current and accurate materials

provided by the MPO or State

DOT. Documents are prepared

before and after decisions are

made, which allows everyone

to see why decisions were

made and to provide additional

input.

In addition to the 

documentation just mentioned, 

FHWA and FTA also prepare 

ocial documents to meet 

NEPA and other legal 

requirements. Since every 

transportation project is 

dierent, and some are more 

complex than others, FHWA 

and FTA prepare one or more 

of the following documents for 

each proposed project in 

conformance with NEPA 

requirements:

I
20

L

L

L

L

L

L

Categorical Exclusions (CEs) are prepared for Federal 

actions that have been determined to not have a signicant 

human and/or natural environmental eect.

Environmental Assessments (EAs) are prepared for Federal 

actions where it is not clearly known how signicant the 

environmental impact might be. If, after preparing an EA, it is 

determined that the project's impact is signicant, an 

Environmental Impact Statement is then prepared. If the 

project’s impact is determined to be insignicant, a “nding 

of no signicant impact" (FONSI) is documented.

Finding of No Signicant Impact (FONSI) is a statement 

indicating that a project was found to have no signicant 

impacts on the quality of the human and natural 

environment and that an environmental statement will, 

therefore, not be prepared.

Environmental Impact Statements (EISs) are 

prepared for Federal actions that have a signicant 

eect on the human and/or natural environment.

Draft EIS (DEIS) and Final EIS (FEIS) are disclosure 

documents that provide a full description of the proposed 

project, the existing environment, and analysis of the 

anticipated benecial and adverse environmental eects 

of all reasonable alternatives.

Record of Decision (ROD) is a concise decision document 

for an environmental impact statement that states the 

decision (selected alternative or choice), other alternatives 

considered, and mitigation adopted for the selected 

alternative or choice.
21

In preparing an EIS, CE, or EA for projects, FHWA 

and FTA must consider all relevant SEE impacts; 

provide opportunity for public involvement and 

input; and work with other Federal, State, Tribal, 

and local agencies to consider their interests as 

well.

Although the size and complexity of the three 

levels of NEPA documentation are dierent, they 

all serve the same purpose--to achieve better 

decisions by making the impact of choices 

known; and by involving you, the public, in 

making community-sensitive transportation 

decisions.
22

Your Role in Project Development

our participation in each step of the

transportation-planning process is Y key to identifying good solutions. You

can also play an important role in project 

development by sharing your perspective on 

the history, issues, and priorities of your local 

area. It is critical to express your views and 

ideas about proposed transportation solutions 

during the planning and project-development 

stages. The agency will consider your input 

along with that of other individuals, groups, 

and agencies to make project decisions that 

are in the best overall public interest while 

meeting all applicable laws and regulations.

Remember, project development is about 

nding a location and developing a design for 

how the project will look and work. Perhaps 

you can recommend ways to avoid, lessen, or 

compensate for an impact. We call this 

mitigation. Or, you may be able to recommend some special or additional features that 

may benet your community. These are called 

enhancements. Mitigation and enhancement 

are discussed during the planning and projectdevelopment phases.
23

You can help your 

planning organization 

and State DOT develop 

methods to gather

and incorporate 

community input. 

If you have ideas about 

better ways to reach 

community groups, 

contact your MPO and/or 

State DOT.

Just as with the transportation-planning 

process, you should put your name on the 

project mailing list, attend project public 

meetings, and invite transportation 

ocials to your community meetings. 

During this phase, an advisory committee 

may be formed to give the community 

direct access to project sta and input into 

the process. On large projects, you can 

expect the sponsoring agency to hold 

public hearings, meetings, and/or workshops in the project area.

In order to have the greatest impact on the 

development of transportation solutions, 

get involved early. Your input, whether 

verbal or written, can help shape your 

community’s quality of life.
24

You Can Make a Dierence

 the greater your inuence will be.

We want you and your family to get to and 

from work, school, and play as safely and 

eciently as possible. Please, help us to 

serve you better.

You can go to this website to nd contact 

information for your local MPO: 

www.planning.dot.gov/overview.asp.

Thank you!

Y our participation is essential to the 

transportation-decisionmaking 

process. The earlier you get involved, 
25

V I S I T O U R W E B S ITE S

Planning

FHWA http://www.fhwa.dot.gov/planning/

FTA http://ww.fta.dot.gov/planning_environment.html

NEPA

FHWA http://environment.fhwa.dot.gov/index.asp

FTA http://www.fta.dot.gov/planning/

 planning_environment_5222.html

Public Involvement

FHWA http://www.fhwa.dot.gov/environment/pubinv2.htm

FTA http://www.fta.dot.gov/planning/environment/

 planning_environment_226.html

To find out where you can get involved, 

contact your FHWA and FTA office, local 

transportation planning organization, or 

State DOT.
26

Glossary

Advisory Committee—a group of representative stakeholders who 

meet regularly to discuss issues of common concern, such as transportation, and to advise sponsoring-agency ocials. These groups eectively interact between residents and their government. Advisory 

committees are usually housed within MPOs and State DOTs.

Categorical Exclusion (CE)—a document prepared for Federal actions 

that do not individually or cumulatively have a signicant human 

and/or natural environmental impact. This Categorical Exclusion 

requires neither an Environmental Assessment nor an Environmental 

Impact Statement.

Enhancements—activities that assist communities in reaching social, 

cultural, aesthetic, and/or environmental goals; and harmonizing the 

transportation system with the community. Enhancements make 

projects t better into the community and can include context-sensitive 

solutions, bicycle and pedestrian facilities, streetscape renovations, 

scenic beautication, historic preservation related to transportation, 

and wetland and wildlife protection.

Environmental Assessment (EA)—an interim decision document 

prepared when the signicance of social, economic, or environmental 

impact has not yet been clearly established. If the action is determined 

to have signicant impact, an Environmental Impact Statement is then 

prepared. If no signicant impact is determined, a FONSI is prepared.

Environmental Impact Statement (EIS)—a document, required under 

the National Environmental Policy Act, prepared for an action that is 

likely to have signicant impact. This document summarizes the major 

environmental impacts, outlines issues, examines reasonable 

alternatives, and arrives at a record of decision, identifying the selected 

alternative for the project. 
27

Federal Highway Administration (FHWA)—an agency of the United 

States Department of Transportation. FHWA administers the Federal-aid 

Highway Program, which provides nancial assistance to States to 

construct and improve highways, urban and rural roads, and bridges. 

FHWA also administers the Federal Lands Highway Program, which 

provides access to and within national forests, national parks, Indian 

Tribal lands, and other public lands. FHWA is headquartered in 

Washington, DC, with eld oces across the country, including one in 

or near each State capital.

Federal Surface Transportation Legislation—Federal laws that 

authorize funds and programs for highway, transit, and other surface

transportation programs. These funds historically have been derived 

primarily through the gas tax you pay at the pump.

Federal Transit Administration (FTA)—an agency of the United States 

Department of Transportation. FTA is the principal source of Federal 

nancial assistance to America's communities for the planning, 

development, and improvement of public or mass transportation 

systems. FTA provides leadership, technical assistance, and nancial 

resources for safe, technologically advanced public transportation that 

enhances mobility and accessibility, improves the nation's communities 

and natural environment, and strengthens the national economy. FTA is 

headquartered in Washington, DC, with regional oces in Atlanta, 

Boston, Chicago, Dallas, Denver, Kansas City, New York, Philadelphia, 

San Francisco, and Seattle.
28

Finding of No Signicant Impact (FONSI)—a statement indicating 

that a project was found to have no signicant impacts on the quality of 

the human and natural environment and that, therefore, no environmental statement will be prepared.

Long-Range Transportation Plan (LRTP)—a document resulting from 

a regional or Statewide process of collaboration and consensus regarding a region or State's transportation system. This document serves as 

the dening vision for the region's or State's transportation systems and 

services. In metropolitan areas, the plan covers all of the transportation 

improvements scheduled for funding over the next 20 years.

Metropolitan Planning Organization (MPO)—a forum for regional 

planning, collaboration, and decisionmaking in metropolitan areas of at 

least 50,000 in population. MPOs conduct the regional transportationplanning process.

Mitigation—a means of avoiding, minimizing, rectifying, or reducing 

an impact, and, in some cases, compensating for an impact.

National Environmental Policy Act (NEPA)—a law enacted in 1969 

that established a national environmental policy. For any project using 

Federal funding or requiring Federal approval, including transportation 

projects, NEPA requires the examination of the environmental eects of 

the proposed project and alternatives, and to complete this process 

before a Federal decision is made.
29

Project Development—the phase a proposed project undergoes once 

it has been through the planning process. The project-development 

phase is a more detailed analysis of a proposed project's social, 

economic, and environmental impacts and various project alternatives. 

During this phase, all aected parties, including the public, reach a 

decision through negotiation. After a proposal has successfully passed 

the project-development phase, it may move to preliminary 

engineering, design, and construction.

Public Hearing—a formal event held prior to a decision for the purpose 

of gathering community comments and positions from all interested 

parties. Comments are entered into public record and, as appropriate, 

incorporated into decisions.

Public Meeting—a formal or informal event designed for a specic 

issue or community group during which planners present information 

and receive input from community residents.

Record of Decision (ROD)—a concise decision document for an 

environmental impact statement that states the decision (i.e., selected 

choice or alternative), other alternatives considered, and mitigation 

adopted for the selected choice or alternative.

State Department of Transportation (State DOT)—a Statewide 

agency that is responsible for conducting transportation planning 

activities in non-metropolitan areas of the State, and assisting MPOs in 

transportation planning for the metropolitan areas. State DOTs are also 

responsible for developing, designing, and constructing most projects 

on major highways in their States.
30

Statewide Transportation Improvement Program (STIP)—prepared 

by the State DOTs, the STIP is a staged, multiyear listing of projects 

proposed for Federal, State, and local funding, encompassing the entire 

State. It is a compilation of the TIPs (see TIP) prepared for the 

metropolitan areas as well as project information for the 

non-metropolitan/rural areas of the State and for transportation 

between cities.

Transportation Improvement Program (TIP)—a staged, multiyear 

(typically 4 year) listing of surface transportation projects proposed for 

Federal, State, and local funding within a metropolitan area. MPOs are 

required to prepare a TIP as a short-range programming document to 

complement the long-range transportation plan.

Transportation Planning—a collaborative process of examining 

demographic characteristics and travel patterns for a given area. This 

process examines how these characteristics will change over a given 

period of time, and evaluates alternatives for the area’s transportation 

system as well as the most eective use of local, State, and Federal 

transportation funding. Long-range planning is typically done over a 

period of 20 years; short-range programming of specic projects usually 

covers a period of 4 years.

Office of Planning

Federal Highway Administration 

Office of Planning and Environment

Federal Transit Administration

1200 New Jersey Avenue, SE

Washington, DC 20590

Publication No. FHWA-HEP-09-034

 HEPP/11-01(15M)P