April 2009

High-Speed Rail Strategic Plan 

The American Recovery and Reinvestment Act

Sincerely,

Secretary Ray LaHood

U.S. Department 1200 New Jersey Avenue, SE

of Transportation Washington, DC 20590

Office of the Secretary 

of Transportation

Dear Members of Congress:

It is with great enthusiasm that I submit this strategic plan for high-speed rail. In the last century, a 

national vision led to the creation of the world’s most advanced highway and aviation networks – helping 

spur unprecedented economic growth and urban development. Now, President Obama is ready to make 

a renewed commitment to the Nation’s travelers – not just to upgrade and maintain our aging highway 

and aviation systems, but to build a world-class network of high-speed passenger rail corridors.

We face a complex set of challenges in the 21st century – building a robust, green economy, gaining energy 

independence, reversing global climate change, and fostering more livable, connected communities. These 

new challenges require creative new transportation solutions. A combination of express and regional 

high-speed corridors, evolving from upgraded, reliable intercity passenger rail service, has proven effective 

in addressing many of these challenges around the world and in selected U.S. corridors. The President is 

committed to bringing this successful approach to key travel corridors across America.

We begin that process here, and will further develop and refine it in the coming months through our 

budget and policy proposals. Throughout the process of advancing this new transportation vision, the 

President has asked me to reach out to you, our State partners, other key stakeholders and the public. We 

will, therefore, be seeking feedback and suggestions that help lead us to a successful implementation of 

this high-speed rail initiative.

I look forward to working with Congress as we embark on this exciting new journey to transform 

America’s transportation system.

Contents

Executive Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .i

Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1

Background and Context . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4

Historical Perspective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4

Current Challenges . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .7

Legislative Foundation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .9

Proposed Strategy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1 2

Funding Approach . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12

Project Selection . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .14

Implementation Schedule . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .16

Next Steps . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1 7

i

Executive Summary

In the 20th century, the United States built highway and aviation networks that transformed the country – 

fueling unprecedented economic expansion, fostering new communities and connecting cities, towns and 

regions. Strong public-sector leadership along with private industry partnerships were the lynchpins to 

that success. States forged the path by identifying the needs and investing in key portions of the system, 

private industry brought innovation and resources, and the Federal Government provided an integrating 

vision, the policy roadmap and a funding framework that enabled the realization of a national system.

We now face a new set of transportation challenges 

– creating a foundation for economic growth in a 

more complex global economy, promoting energy 

independence and efficiency, addressing global climate 

change and environmental quality, and fostering 

livable communities connected by safe, efficient, 

modes of travel. The existing transportation system 

requires significant investment simply to rebuild and 

maintain critical infrastructure and modernize aging 

technologies. Meeting our 21st century challenges 

will require new transportation solutions as well. 

A New Transportation Vision. President Obama 

proposes to help address the Nation’s transportation 

challenges by investing in an efficient, high-speed 

passenger rail network of 100- to 600-mile intercity 

corridors that connect communities across America. This vision builds on the successful highway and aviation 

development models with a 21st century solution that focuses on a clean, energy-efficient option (even today’s 

modest intercity passenger rail system consumes one-third less energy per passenger-mile than automobiles, 

for example1

).

Developing a comprehensive high-speed intercity passenger rail network will require a long-term commitment 

at both the Federal and State levels. The President proposes to jump-start the process with the $8 billion 

down payment provided in the American Recovery and Reinvestment Act (ARRA) and a high-speed rail grant 

program of $1 billion per year (proposed in his fiscal year (FY) 2010 budget). These first steps emphasize strategic 

investments that will yield tangible benefits to intercity rail infrastructure, equipment, performance, and 

intermodal connections over the next several years, while also creating a “pipeline” of projects to enable future 

corridor development.

A major reshaping of the Nation’s transportation system is not without significant challenges. After decades 

of relatively modest investment in passenger rail, the United States has a dwindling pool of expertise in the 

field and a lack of manufacturing capacity. Federal and State Governments face a difficult fiscal environment 

in which to balance critical investment priorities, and many will have to ramp up their program management 

1 Based on United States Department of Energy, 2007 Transportation Energy Data Book – for Amtrak and auto transportation; HSR 

can be even more energy-efficient.

Strategic Transportation Goals

•	 Ensure	safe	and	efficient

 transportation choices 

•	 Build	a	foundation	for	

 economic competitiveness

•	 Promote	energy	efficiency	

 and environmental quality

•	 Support	interconnected	

 livable communities
ii

infrastructure. The country’s success in creating a sustainable transportation future, however, demands that 

we work to overcome these challenges through strong new partnerships among State and local governments, 

railroads, manufacturers and other stakeholders, along with the renewed Federal commitment proposed here. 

Proposed Funding Approach. In order to meet the goals of the Recovery Act while initiating a transformational 

new program, we propose to advance three funding “tracks”:

	 Projects. Provide grants to complete individual projects that are “ready to go” with preliminary 

engineering and environmental work completed.2

	 Corridor programs. Enter into cooperative agreements to develop entire phases or geographic sections 

of corridor programs that have completed corridor plans and environmental documentation, and 

have a prioritized list of projects to meet the corridor objectives; this approach would involve 

additional Federal oversight and support.

	 Planning. Enter into cooperative agreements for planning activities using non-ARRA appropriations 

funds, in order to create the corridor program and project pipeline needed to fully develop a highspeed rail network.

As President Obama outlined in his March 20, 2009, memorandum, Ensuring Responsible Spending of Recovery 

Act Funds, program evaluation will be based on “transparent, merit-based selection criteria.” Criteria will 

include:

	 Public Benefits. The extent to which the project or corridor program provides specific, measurable, 

achievable benefits in a timely and cost-effective manner, including: (1) contributing to economic 

recovery efforts, (2) advancing strategic transportation goals (outlined above), and (3) furthering 

other passenger rail goals articulated in recently-passed authorizing legislation.

	 Risk Mitigation. The extent to which the project or corridor program addresses critical success 

factors, including: (1) fiscal and institutional capacity to carry out projects, (2) realistic financial 

plans for covering capital and operating costs, (3) formal commitments from key stakeholders (e.g., 

railroads and neighboring States), and (4) adequate project management oversight experience and 

procedures. 

Next Steps. This Strategic Plan is just the first of several steps intended to further refine and elaborate on 

this high-speed rail corridor vision – including the program guidance (due June 17), the President’s detailed 

fiscal year 2010 budget request, the National Rail Plan called for by Congress, and discussions over upcoming 

surface transportation legislation. The U.S. Department of Transportation (DOT) intends to seek structured 

input from stakeholders and the public throughout the process of developing and implementing the strategy.

2 Environmental review and preliminary engineering expenses needed to prepare projects for construction will also be eligible.
1

Introduction

After 60 years and more than $1.8 trillion of investment,3 the United States has developed the world’s most 

advanced highway and aviation systems. Yet these systems face mounting congestion and rising environmental 

costs. Moreover, the Nation’s current transportation system consumes 70% of our oil demand – much of it 

from overseas sources – and contributes 28% of greenhouse gas emissions.

The highway and aviation networks will always remain indispensable elements of the country’s transportation 

system, and significant investment is needed in those modes to rebuild essential infrastructure and modernize 

aging technologies. But it is also clear that the existing infrastructure is insufficient to handle the Nation’s future 

passenger and freight mobility demands. A new approach is needed – one that responds to today’s economic, 

energy, and environmental challenges.

Strategic Transportation Goals

Transportation investment strategy must address several strategic goals in the coming years:

•	 Ensure safe and efficient transportation choices. Promote the safest possible movement of goods and 

people, and optimize the use of existing and new transportation infrastructure.

•	 Build a foundation for economic competitiveness. Lay the groundwork for near-term and ongoing 

economic growth by facilitating efficient movement of people and goods, while renewing critical 

domestic manufacturing and supply industries.

•	 Promote energy efficiency and environmental quality. Reinforce efforts to foster energy 

independence and renewable energy, and reduce pollutants and greenhouse gas emissions.

•	 Support interconnected, livable communities. Improve quality of life in local communities by 

promoting affordable, convenient and sustainable housing, energy and transportation options. 

As Figure 1 illustrates, each transportation mode plays a critical role in intercity passenger transportation, but 

the comparative advantage of each varies by market factor.

Figure 1

Potential Modal Comparative Advantage by Market4

Intercity Distance Mile

Population Density 0-100 100-600 600-3,000

Light 1) Auto 1) Auto 

2) Conventional Rail

1) Auto 

2) Air

Moderate 1) Auto 

2) Commuter Rail

1) High Speed Rail 

2) Auto

1) Auto 

2) Air

High 1) Commuter Rail 

2) Auto

1) High Speed Rail 

2) Air

1) Air

3 In constant 2009 dollars.

4 Not intended to be definitive “rankings” but simply to illustrate where modes tend to better meet strategic goals; modes not listed in 

markets can play important “niche” roles – e.g., bus and long-distance rail.
2

High-Speed Rail

High-speed intercity passenger rail can play a critical role in certain travel markets, but the United States 

has historically failed to invest in this mode. The President proposes a long-term strategy intended to build 

an efficient, high-speed passenger rail network of 100- to 600-mile intercity corridors, as one element of a 

modernized transportation system. 

In the near term, this proposal

lays the foundation for that

network by investing in intercity

rail infrastructure, equipment and

intermodal connections, beginning

with an $8 billion down payment provided under ARRA, and

continuing with a high-speed rail

grant program of $1 billion per year

(as called for in the President’s FY

2010 budget proposal).

The near-term investment strategy 

seeks to: 

•	 Advance new express highspeed corridor services 

(operating speeds above 

150 mph on primarily 

dedicated track) in select 

corridors of 200–600 miles.

	 Develop emerging and 

regional high-speed 

corridor services (operating 

speeds up to 90–110 

mph and 110–150 mph 

respectively, on shared 

and dedicated track) in 

corridors of 100–500 miles.

	 Upgrade reliability and 

service on conventional 

intercity rail services 

(operating speeds up to 

79–90 mph).

Definitions: 

High-Speed Rail (HSR) and Intercity Passenger Rail (IPR)*

HSR – Express. Frequent, express service between major population centers 200–600 miles apart, with few intermediate stops. 

Top speeds of at least 150 mph on completely grade-separated, 

dedicated rights-of-way (with the possible exception of some 

shared track in terminal areas). Intended to relieve air and highway capacity constraints.

HSR – Regional. Relatively frequent service between major and 

moderate population centers 100–500 miles apart, with some 

intermediate stops. Top speeds of 110–150 mph, grade-separated, 

with some dedicated and some shared track (using positive train 

control technology). Intended to relieve highway and, to some 

extent, air capacity constraints.

Emerging HSR. Developing corridors of 100–500 miles, with 

strong potential for future HSR Regional and/or Express service. 

Top speeds of up to 90–110 mph on primarily shared track 

(eventually using positive train control technology), with advanced 

grade crossing protection or separation. Intended to develop the 

passenger rail market, and provide some relief to other modes.

Conventional Rail. Traditional intercity passenger rail services of 

more than 100 miles with as little as one to as many as 7–12 daily 

frequencies; may or may not have strong potential for future highspeed rail service. Top speeds of up to 79 mph to as high as 90 

mph generally on shared track. Intended to provide travel options 

and to develop the passenger rail market for further development in 

the future.

* Corridor lengths are approximate; slightly shorter or longer 

intercity services may still help meet strategic goals in a costeffective manner.
3

This near-term strategy emphasizes making investments that yield tangible results within the next several years, 

while also creating a “pipeline” that enables ongoing future corridor development.

Benefits of Passenger Rail

Rail is well positioned to address many of the Nation’s strategic transportation goals: 

Safe and efficient transportation options. Rail is a cost-effective means for serving transportation needs in congested 

intercity corridors. In many cases, modest investment on existing rights-of-way can result in high-speed rail 

(HSR) and intercity passenger rail (IPR) service with highly competitive trip times, while also providing ancillary 

benefits to energy-efficient freight rail service. IPR and HSR also have a strong track record of safety in the 

United States and overseas. In Japan, for instance, the Tokaido Shinkansen trains have operated without a 

derailment or collision since the inception of operations in 1964. 

Foundation for economic competitiveness. America’s transportation system is the lifeblood of the economy. 

Providing a robust rail network can help serve the needs of national and regional commerce in a costeffective, resource-efficient manner, by offering travelers convenient access to economic centers. Moreover, 

investment in HSR/IPR will not only generate 

high-skilled construction and operating jobs, 

but it can also provide a steady market for 

revitalized domestic industries producing such 

essential components as rail, control systems, 

locomotives, and passenger cars.

Energy efficiency and environmental quality. 

Rail is already among the cleanest and most 

energy-efficient of the passenger transportation 

modes (see Figure 2). A future HSR/IPR 

network using new clean diesel or electric 

power can further enhance rail’s advantages. 

According to one recent study, implementation 

of pending plans for the federally designated 

HSR corridors could result in an annual reduction of 6 billion pounds of CO2

 (2.7 MMTCO2).6

Interconnected livable communities. Rail transport has generally been associated with “smart growth” because 

it can foster higher-density development than has typically been associated with highways and airports. 

Rail is uniquely capable of providing both high-speed intercity transportation and its own efficient local 

access and egress system. For example, in the Boston region, Amtrak’s Acela serves two downtown stations 

connected to public transit – South Station and Back Bay – as well as a suburban station at Route 128. 

Yet just a few miles down the line to the west, Acela achieves speeds up to 130 miles per hour, and then 150 

miles per hour. 

5 U.S. Department of Energy, “Transportation Energy Data Book,” Edition 26, May 2007.

6 Joint 2006 study by the Center for Clean Air Policy and Center for Neighborhood Technology, 

http://www.cnt.org/repository/HighSpeedRailEmissions.pdf

Figure 2 

Energy Efficiency of 

Passenger Transportation Modes5

500

1,000

1,500

2,000

2,500

,000

3,

3

500

Automobiles Air Carriers Commuter Trains Intercity Trains

BTUs per Passenger-Mile

 
4

Background and Context

In order to understand the proposed approach for launching high-speed rail in America, it is important to 

briefly review the history of intercity passenger rail, the challenges in implementing the new vision, and the 

legislative underpinnings for it.

Historical Perspective

While it was once the preeminent mode of travel, intercity passenger train travel in America has played a 

relatively minor role in the second half of the 20th Century. As Figure 3 displays, with the expansion of the 

highway and aviation systems, total intercity travel in the United States has grown dramatically. Intercity 

passenger rail traffic, however, after peaking during World War II, collapsed in the late 1950s and 1960s, 

reaching a low point of 4.3 billion passenger-miles in 1972, after the private railroads got out of the business. 

Figure 3

U.S. Intercity Travel Trends by Modal Share, 1929-2004 7

Much of this growth in intercity travel has been fueled by an aggressive public investment strategy. For six 

decades, Federal transportation policies have focused most intercity transportation investments in the highway 

7 Estimates based on data from U.S. DOT and Association of American Railroads and the American Travel Survey (1995).

250

500

750

1,000

1929194419511961196319651967196919711973197519771979198119831985198719891991199319951997199920012003

Passenger Miles (billions)

Bus

Auto

Air

Rail

WWII

B-707

in Service

Interstate System

80% Complete

Airport & 

Airway Trust 

Fund Created

Amtrak

Created

Interstate 

System

Started

Fiscal Year
5

and aviation systems. As Figure 4 displays, passenger rail has represented less than 3 percent of the rapidly 

growing Federal investment in intercity transportation, and until this year, that share has been shrinking.

Figure 4 

Federal Investment in Intercity Transportation, 1949-2008 

(2009 Constant Dollars. Time Axis Not to Scale.)

10

20

30

40

50

60

19491952195519581961196419671970197319761979198219851988199119941997200020032006

$ Billions

Highway

Air

Intercity Passenger Rail

(2009 Constant Dollars)

Fiscal Year

Funding and Ownership

In 1970, Congress created the National Railroad Passenger Corporation (Amtrak) to preserve remaining 

passenger service over a national system of routes. Amtrak was formed as a private, for-profit Federallysponsored corporation. The company was granted rights of access to tracks owned by the private railroads at 

incremental cost, along with operating priority over freight trains, in exchange for relieving the railroads of their 

direct passenger service obligations and associated financial losses.

Moreover, Amtrak relies almost exclusively on annual Federal appropriations to cover both its capital needs 

and operating deficits, making long-term planning decisions difficult. Amtrak’s capital investments have largely 

failed to keep up with the needs of its existing fleet and infrastructure, and aside from the Northeast Corridor 

(NEC) Improvement Project, few upgrades to the system have been made. States like California, Illinois, 

North Carolina, Washington and others have independently sponsored rail services and capital investments, 

but significant modernization of rail systems and service has remained out of reach of many States. While other 

modes have historically benefited from dedicated Federal funding for infrastructure investment, rail has had no 

such Federal capital matching source. Figure 5 illustrates how State capital dollars can be leveraged by Federal 

matching dollars for each mode.8

8 Federal matching funding (i.e., leverage) varies by specific project; these numbers are examples.
6

Designated High-Speed Rail Corridors

Over the past two decades, the 

Federal Government has taken small 

steps to lay the groundwork for an 

expansion of HSR and IPR, but 

has provided little funding for these 

efforts. In 1991, the Intermodal 

Surface Transportation Efficiency Act 

(ISTEA) established a program to fund 

safety improvements at highwayrail 

grade crossings on corridors to be 

“designated” as high-speed intercity 

passenger rail corridors; the maximum 

funding for the program in most years 

was about $5 million. Of the 11 authorized high-speed corridor designations, several successive Secretaries of 

Transportation have designated 10 (displayed, along with other intercity passenger routes, in Figure 6).9

Figure 6 

Designated High-Speed Rail Corridors and the North East Corridor

Florida

California

Keystone

Pacific Northwest

Empire

NEC

Gulf Coast

South Central

Southeast

Northern New England

Chicago Hub

Network

Designated High-speed Rail Corridor

Northeast Corridor (NEC)

(* Alaska Railroad (Seward to Fairbanks/Eielson) 

 not shown.)

Other Passenger Rail Routes 

U.S. Intercity Passenger Rail Network

9 See www.fra.dot.gov/us/content/618 for more information. Note that corridor designations were made based on State applications 

for corridors expected to achieve 90 mph – to address highway-rail grade crossings; since the NEC already operated above 90 mph and 

had few grade crossings, no State applied.

Project Type: 

Federal/State

Capital Match: 

Available 

Project 

State Capital 

Investment: 

1 0$ 0 m

Highway Transit Rail 

$50 m0 $200 – 500 m $100 m

80/20 

50/50 

to 

80/20 

0/100 

Figure 5 

Example: Historical Federal Funding Leverage by Mode
7

International Examples

After leading the world in rail development during the 19th and early 20th centuries, the United States has more 

recently lagged behind other countries in developing modern intercity passenger rail. Over the last several 

decades, many countries in Europe and Asia have developed HSR systems. Figure 7 highlights several examples 

of HSR system characteristics around the world. 

Figure 7

International Examples of HSR10

Japan France Germany UK China US

Date of initiation 1964 1981 1988 2003 2007 1969/2000

System length (route-miles) 1,360 1,180 798 70 588 457

Top operating speed (mph) 188 199 186 186 186 125/150

HSR ridership (millions) 300 100 67 8 No Data 11

HSR in Europe often developed gradually, moving by stages from “emerging” to “regional” to “express,” as 

conventional rail services reached capacity. For example, in the 1950s and 1960s, the French National Railways 

introduced high-speed services at up to 125 mph, including the Mistral and the Capitole, over existing trackage 

in the Paris–Lyon and Paris–Toulouse markets. After those services had proven their value, the French wholly 

or partially replaced them with TGV11 services in the 1980s. In the United States, an analogous approach 

marked the NEC, in which the Metroliners of the late 1960s and 1970s proved the concept that passengers 

would ride trains that competed with air on door-to-door travel times – thus leading to the Northeast Corridor 

Improvement Project.

Current Challenges

Against this backdrop of limited historical investment and unique institutional arrangements, there are a 

number of challenges inherent in advancing a new passenger rail vision.

Lack of Expertise and Resources. The relatively small investment in passenger rail in recent decades and growing 

retirements of personnel throughout the rail sector have resulted in a shrinking pool of experts in the field, 

including engineers skilled in signal, track, and rolling stock design, along with experienced rail planners and 

managers. A renewed investment program will eventually bring more expertise back into the industry, but that 

process is likely to lag behind the need to plan, implement and manage a major new program. Moreover, the 

Federal and State agencies responsible for administering this effort will need to aggressively build capacity to 

manage their new portfolios; and the freight railroads and Amtrak will need to identify resources to support the 

new effort without diverting from their core operating and maintenance responsibilities.

10 International data from: GAO report, High-Speed Passenger Rail (GAO-09-317); UIC High-Speed Department, “High-Speed Lines 

in the World” www.uic.asso.fr/uic/spip.php?article573; and Jane’s World Railways 2007-2008. International ridership data is from 

2007, except for Germany and U.K., which are from 2005. Amtrak data from FY 2008; represents both NEC Regional (predecessor 

service began in 1969) and Acela services.

11 “Train à grande vitesse” or “high-speed train.”
8

State Fiscal Constraints. The current economic downturn has left many States in a precarious fiscal condition. 

 Many lack resources to make capital investments or take on potential rail operations expenses. In spite of these 

fiscal constraints, some States have continued to invest in passenger rail, even without Federal support, and many 

have funded operating costs for running intercity passenger rail services. While an expansion of passenger rail 

and development of HSR fits well into the transportation vision of many States, decisionmakers will have been 

confronted with difficult budget decisions to advance these programs in coming years, even with an expanded 

Federal commitment.

Partnerships with Private Railroads. Although Federal law provides Amtrak a right of access to private 

railroad facilities, that access has been constrained by the capacity of rail lines and by freight traffic. With 

the prospect of significant public funding flowing through States to support capital investments – often in 

existing, privately owned rail lines – for expanded and improved passenger services, partnerships will be 

needed between States and the private railroads that own the infrastructure. Whether for comprehensive 

corridor improvement programs or discrete projects, State-railroad agreements will be needed to 

ensure that public investments will fulfill, and continue to be available for, their intended purposes.

Multi-State Partnerships. Most intercity passenger rail corridors, including designated high-speed rail corridors, 

cross State boundaries. Viable HSR corridor strategies will, therefore, require a multi-State partnership in 

many cases. To successfully plan, fund, build and operate these corridors, the States involved will need to act 

in a coordinated fashion, through an interstate compact, a multi-State agreement, or other instrument. Any 

such multi-State understanding will require the backing of several political and administrative entities within 

each State.

Need for High-Speed Rail Safety Standards. While most high-speed systems overseas have a good safety record, 

usually on dedicated track, U.S. railroad safety standards are designed to keep passengers and crew safe in a 

mixed operating environment with conventional freight equipment, which is much heavier than comparable 

foreign equipment. The advent of Positive Train Control (PTC), crash energy management, and other advances 

provides the United States with an opportunity to revise its safety approach in a manner that accelerates the 

development of high-speed rail while preserving and improving upon a strong safety regime. This will be a 

challenge for the Federal Railroad Administration (FRA) as it seeks to administer its critical safety responsibility 

and facilitate high-speed rail development. The systems approach required to ensure safety of new HSR corridors 

will necessitate consideration of additional changes in several regulations, including equipment, system safety, 

and collision and derailment prevention.
9

Legislative Foundation 

Until last year, the legislative debate surrounding intercity passenger rail has focused primarily on 

institutional and structural policy priorities regarding Amtrak, and limited efforts to improve services 

centered primarily on the Northeast Corridor. Beginning in FY 2008, however, Congress established a 

new framework for intercity passenger rail development with the passage of four key pieces of legislation:

•	 The FY 2008 Appropriation Act, which established a new IPR State Grant Program.12

•	 The Rail Safety Improvement Act of 2008 (RSIA).13

•	 The Passenger Rail Investment and Improvement Act of 2008 (PRIIA).14

•	 The American Recovery and Reinvestment Act of 2009 (ARRA).15

IPR Capital Assistance to States. The major shift in Congressional direction for intercity passenger 

rail development began with the establishment of a new pilot program for joint Federal-State IPR capital 

investment, known as Capital Assistance to States – Intercity Passenger Rail Service (“State Grant Program”). 

Under this program, $30 million in Federal funding was made available to States on a competitive basis, subject 

to a 50-percent non-Federal match. The law established basic eligibility and evaluation criteria, and allowed 

up to 10 percent of the funding to be used for rail corridor planning grants. Although Federal-State IPR 

capital investment programs had been contemplated before (e.g., under the original proposals for the Swift Rail 

Development Act of 1994), the FY 2008 program marked the first time any such proposal had been enacted 

into law.

Rail Safety Improvement Act of 2008 (RSIA).16 RSIA reauthorizes and augments FRA’s safety programs. 

Notably, from an intercity passenger rail development perspective, RSIA requires implementation of PTC 

systems on every main line over which intercity rail passenger or commuter rail passenger service is regularly 

provided.17 Each Class I railroad carrier and each regularly scheduled intercity or commuter railroad must 

install PTC systems by December 31, 2015, for governing operations on: (1) its main line over which intercity 

rail passenger or commuter rail passenger service is regularly provided; (2) its main line over which hazardous 

materials that are poisonous- or toxic-by-inhalation are transported; and (3) such other tracks as the Secretary 

designates by regulation or order. Addressing the practical requirements of this provision remains a financial 

challenge for passenger and freight rail operators.

Passenger Rail Investment and Improvement Act of 2008 (PRIIA). Enacted as part of the same bill as RSIA, 

PRIIA represents the most sweeping Congressional action on intercity passenger rail since those that created 

Amtrak and the Northeast Corridor Improvement Project during the 1970s. In addition to reauthorizing 

12 Included in Division K of Public Law 110-161.

13 Division A of Public Law 110-432.

14 Division B of Public Law 110-432.

15 Public Law 111-5.

16 Public Law No. 110-432, Division A, enacted Oct. 16, 2008.

17 “Positive Train control” means a system designed to prevent collisions between trains, overspeed derailments (derailments caused 

when a train exceeds speed limits), incursions into established work zone limits (i.e., for roadway workers maintaining track), and the 

movement of a train through an improperly positioned switch.
10

Amtrak, PRIIA builds upon the experience of the FY 2008 State Grant Program by establishing three new 

competitive grant programs for funding high-speed and intercity passenger rail capital improvements:

•	 Intercity Passenger Rail Service Corridor Capital Assistance (Section 301).18 Under this section, the 

broadest of the three new grant programs established under PRIIA, States (including the District of 

Columbia), groups of States, interstate compacts, and public IPR agencies established by one or more 

States may apply for grants to fund up to 80 percent of the cost of capital improvements to benefit all 

types of IPR service. In order to be eligible for funding under this program, proposed projects must 

be included in a State Rail Plan. 

•	 High-Speed Rail Corridor Development (Section 501).19 Although similar in structure, criteria, 

matching requirements, and conditions as Section 301, eligibility for this program is restricted to 

projects intended to develop high-speed rail corridors. Such projects must be located on a Federally 

designated HSR corridor, and be intended to benefit IPR services reasonably expected to reach speeds 

of at least 110 miles per hour. Participant eligibility for this program is also broadened from Section 

301 to include Amtrak.

•	 Congestion Grants (Section 302).20 This program authorizes grants to States or to Amtrak (in cooperation 

with States) for financing up to 80 percent of the capital costs of facilities, infrastructure, and equipment 

for high-priority rail corridor projects necessary to reduce congestion or facilitate ridership growth in 

IPR transportation. The program incorporates the same grant conditions as those applicable under 

Sections 301 and 501.

In addition to establishing these new grant programs, PRIIA includes a number of other relevant 

provisions, including:21

•	 Rail Planning.22 PRIIA attempts to put rail on an equal footing with planning for other transportation 

modes by requiring State Rail Plans as a prerequisite to receiving grant funding. These plans are to 

be comprehensive documents intended to lay out the State’s vision, objectives, service goals, capital 

investment plans, and project funding priorities for all passenger and freight rail services. PRIIA 

also requires DOT to develop a National Rail Plan that is consistent with approved State Rail Plans 

and outlines the national rail policies and priorities to promote an integrated, cohesive, efficient, and 

optimized rail system for the movement of goods and people. 

•	 Public-Private HSR Concepts (Section 502). PRIIA encourages public-private partnerships through a 

call for proposals for the financing, design, construction, operation and maintenance of high-speed rail 

services operating within one of the designated HSR corridors or the NEC. FRA published a Request 

for Expressions of Interest in the Federal Register on December 16, 2008, initiating the process. 

18 49 U.S.C. Chapter 244.

19 49 U.S.C. § 26101 et seq.

20 49 U.S.C § 24105.

21 See http://www.fra.dot.gov/downloads/PRIIA%20Overview%20031009.pdf for more information.

22 Sections 303 and 307 – 49 U.S.C. Chapter 227 and § 103(j)(2)-(3).
11

PRIIA states that eligible projects are to be advanced to commissions for review; and that meritorious 

projects are to be recommended to the DOT Secretary and subsequently to Congress for action.23

American Recovery and Reinvestment Act of 2009. The $8 billion HSR/IPR funding contained in ARRA 

represents the first appropriations for Sections 301, 302 and 501 of PRIIA, and a major “jump start” for the 

widespread development of improved intercity passenger rail service. In keeping with the urgent nature and 

underlying purposes of ARRA, the Act waives the non-Federal matching funding requirements for all three 

programs, suspends the requirement that proposed projects be included in a State Rail Plan (along with the 

eligibility of State Rail Planning costs for ARRA funding), and allows for the issuance of interim guidance to 

govern the procedures and conditions for the programs. ARRA further directs the Secretary of Transportation 

to give priority to projects that support the development of HSR service, and requires that the Secretary submit 

to Congress this Strategic Plan describing how the funding will be used to further that objective. Unlike 

funding for other programs provided through ARRA, the law allows the intercity passenger rail development 

funding to remain available for obligation until September 30, 2012.

Annual Appropriations. Since Amtrak’s inception, funding for intercity passenger rail has been provided 

through the annual appropriations process, often without even the benefit of an authorization that sets 

longer-term planning parameters. Moreover, funding has focused on basic operating and capital maintenance 

requirements, with capital improvement funds primarily dedicated to the NEC. Any development of other 

corridors around the country has historically relied on State funding. Starting with the FY 2008 and FY 2009 

appropriations, and now with ARRA, the Federal Government is committing for the first time to become a 

substantial partner in high-speed intercity passenger rail investment. Figure 8 shows Federal funding over the 

last four decades for Amtrak and recently for States.

Figure 8 

Federal Funding for Intercity Passenger Rail, 1971-2009

23 See 73 FR 76443.
12

Proposed Strategy

While the $8 billion provided in ARRA is a substantial Federal commitment to high-speed rail development, it 

represents only a down payment on a longer-term passenger rail development strategy. Coupled with reliable 

funding of Amtrak assets and services, an ongoing annual investment program is needed to build a 21st century 

transportation network that includes a central role for high-speed passenger rail in corridors of 100–600 miles. 

President Obama has proposed to begin that ongoing investment in his FY 2010 budget proposal, which calls 

for high-speed rail funding of $1 billion per year for 5 years.

ARRA directs funds toward projects that will aid in near-term economic recovery, while laying a foundation 

for longer-term economic stability and competitiveness. The approach we propose for the HSR/IPR program 

seeks to do just that. Unlike other established programs funded by ARRA, the $8 billion in HSR/IPR funding 

represents the first commitment of Federal funds towards discretionary grant programs authorized just last year 

in PRIIA (summarized above). As a new program, the strategy for its implementation must address a unique set 

of challenges. A sustainable program that builds out a modern high-speed rail network to meet the President’s 

strategic transportation goals will require substantial planning efforts on the part of States and the Federal 

Government. PRIIA lays the groundwork for these efforts through its requirements for State Rail Plans and a 

National Rail Plan. In the meantime, the strategy for deploying ARRA funding will have to rely on existing 

plans to establish project funding priorities.24 

States have had little time to prepare for a Federal capital matching program for intercity passenger rail of this 

magnitude. Nonetheless, some States have been putting together corridor plans and even investing some of their 

own resources in development of those corridors. Other States have identified incremental projects that yield 

benefits to existing intercity passenger rail services (e.g., relieving infrastructure bottlenecks, adding frequencies, 

or upgrading equipment). Yet others are at just the early stages of planning but, with some assistance, can be in 

a position to develop services in the coming years.

Funding Approach

DOT’s implementation of the $8 billion HSR/IPR program must recognize these realities while 

meeting the goals of ARRA, and at the same time, the strategy must help advance the longer-term goal of 

developing a national HSR/IPR network of corridors. In order to meet these diverse constraints, our 

strategy establishes three approaches, or “tracks,” for funding under ARRA and annual appropriations:

1. Projects. Grants to complete individual projects eligible under Sections 301 (IPR projects) and Sections 

302 (congestion projects) described above, for the benefit of existing services 25. Eligible projects include 

infrastructure, facilities and equipment. In order to qualify, these projects must: (a) be “ready to go” 

(i.e., environmental work required by law (National Environmental Policy Act, or NEPA) and preliminary 

engineering (PE) are complete),26 and (b) demonstrate “independent utility.”27 For projects that meet the 

24 As described in the Legislative Foundation section above, State rail planning is not eligible for funding under ARRA. 

25 Project eligibility for Section 301 funding provided under ARRA is limited by the statute to include only construction and 

rehabilitation projects as defined in 49 U.S.C. § 24401(2)(A) and (B), thus excluding both state rail planning projects (under 49 

U.S.C. § 24401(2)(C)) and liability costs (under 49 U.S.C. § 24401(2)(D)). 26 Environmental documentation to comply with the National Environmental Policy Act and related laws require completion of 

preliminary engineering design sufficient to evaluate environmental effects.

27 “Independent utility” means the project is usable and provides benefits even if no additional transportation improvements in the area 

are made.
13

independent utility test but have not yet completed NEPA and PE, funding is available to conduct NEPA 

and PE work to make projects ready to go and, therefore, eligible under a subsequent grant solicitation. 

For rolling stock proposals, DOT will encourage acquisition of new, standardized, interoperable equipment 

that incorporates modern safety features.28 Under this track, funds would be obligated for successful 

applications under standard grant agreement terms and conditions, including ARRA oversight and 

reporting procedures. 

2. Corridor programs. Cooperative agreements to develop entire segments or phases of corridor programs 

eligible under Section 501 (HSR) and Section 301 (IPR), benefiting existing or new services. In order to 

qualify, these corridor programs must: (a) be based on a corridor plan that establishes service objectives and 

includes a prioritized list of projects to achieve those objectives;29 and (b) have completed sufficient corridor/

section/phase programmatic or project environmental (NEPA) documentation and sufficient planning to 

provide reasonable project cost and benefit estimates. For corridor programs that do not qualify under 

(a) and (b) above, funding is available to complete this work and make corridor programs eligible for 

subsequent solicitations. Under this track, funds for selected applications of a corridor program phase and/

or geographic section would be set aside at the outset, and provided at pre-specified milestone approval 

points. This approach would involve a higher level of Federal oversight and support than under even the 

heightened scrutiny inherent in standard ARRA grant agreements.

3. Planning. Cooperative agreements for planning activities (including development of corridor plans and 

State Rail Plans) eligible for funding under Section 301 of PRIIA, using non-ARRA funds. This third 

track provides States an opportunity to prepare themselves for any funding remaining in subsequent rounds 

of ARRA, and/or future year appropriations. It is intended to help create the pipeline for future corridor 

development needed to build out a national HSR/IPR network.

Figure 9 illustrates this three-track funding approach.

Figure 9 

Funding Tracks

2. Corridor Program

Cooperative Agreement

State Rail 

Plans (future) 

Corridor Plan 

Vision/Goals 

Operating Plan 

Infrastructure 

Plan 

Fleet Plan 

Corridor 

Investment 

Program 

Projects Project 

Corridor 

NEPA 

Projects 

PE 

Grant Agreement

3. Planning

Cooperative Agreement

Project 

NEPA/PE 

Project 

Benefits 

Program 

Benefits 

28 DOT plans to work with stakeholders to develop a process for facilitating this rolling stock approach.

9 Corridor plans are an integrated set of studies that address: travel demand forecasts, existing rail line conditions, conceptual 

ngineering, forecasts of future rail operations and simulation modeling, rail service plans, capital and operating financial plans, and a 

unding plan.

2

e

f
14

Project Selection

As President Obama outlined in his March 20, 2009, memorandum, Ensuring Responsible Spending of Recovery 

Act Funds, implementing agencies are to “develop transparent, merit-based selection criteria that will guide 

their available discretion in committing, obligating, or expending funds under the Recovery Act.” DOT is 

committed to carrying out this requirement though clear selection criteria and evaluation procedures.

The detailed application guidance to be issued by June 17, 2009, will provide specific instructions for applicants. 

In this strategic plan, we provide an overview of the criteria that will be used to evaluate applications along the 

three tracks outlined above. The forthcoming guidance will describe in more detail the application prerequisites 

for each program track along with the specific criteria that will be used to evaluate applications.

Prerequisites

Applications for project or program funding (i.e., tracks (1) and (2), respectively) will need to address several 

elements critical to the success of high-speed rail and intercity passenger rail programs and projects. The scope 

and specificity of each depends on stage of development (e.g., final design/engineering, construction) and the 

application track (i.e., corridor program vs. project), but all applications will need to address these prerequisites 

in some fashion. Prerequisites include:

•	 Planning and Project Development. Although the State rail planning requirements of PRIIA are 

waived, applicants must demonstrate that their project or corridor program: (a) is consistent with any 

overall plan for developing the corridor, segment of the corridor or terminal area; (b) has “independent 

utility” – that is, can achieve benefits regardless of whether other complimentary projects are 

implemented; and (c) addresses all safety and other regulatory requirements. Projects will need to have 

PE and environmental work completed before construction can be approved.30

•	 Stakeholder Agreements. Applicants will need to have in place, or describe clearly how they will 

reach, written agreements to clarify roles and responsibilities and to ensure project success with: (a) 

other States involved in the corridor; (b) the infrastructure owners/host railroads; (c) the operator of 

the proposed service; and (d) any other stakeholders critical to project success. For corridor program 

applications, DOT strongly recommends reaching “master agreements” to cover the delivery of 

projects (in phases if relevant) over the course of the corridor development process.

•	 Financial Plan. Applicants will need to provide operating financial forecasts, based upon a rigorous 

approach to estimating ridership/revenue and operating and maintenance costs, and identify how 

they will cover operating losses, if any. The operating expenses funding proposal should identify 

any existing legislative commitments and/or a previous record of covering operating costs of intercity 

passenger rail services, recognizing that the role of the Federal Government under ARRA and PRIIA 

is to provide capital funding. The plan should also detail project capital costs, how they were 

estimated, and whether any non-Federal sources of funding will be included. 

30 PE and NEPA are eligible expenses under ARRA HSR/IPR grants; planning is not eligible under ARRA, but is eligible under FY 

2009 appropriations IPR grants.
15

•	 Project/Risk Management Plan. As called for in PRIIA,31 and reinforced in the accountability 

requirements of ARRA, applicants will need to demonstrate that they have the capability to effectively 

manage corridor programs and projects. These plans will need to include items such as staff resources, 

budget, schedules, control/change order procedures, quality control processes, oversight provisions, and 

reporting mechanisms. The plans will also need to address the specific accountability, certifications, risk 

management and reporting procedures specified in ARRA. Demonstrated experience in successfully 

managing programs and projects of similar complexity and scrutiny will be helpful in making such 

a showing.

Selection Criteria

As the President’s March 20 memo specified, project selection criteria are intended to advance projects 

that deliver programmatic results, achieve economic stimulus, achieve long-term public benefits, and satisfy 

transparency and accountability objectives. In order to ensure these objectives are met, HSR/IPR grant applications will be evaluated based on the following criteria, which will be detailed further in the upcoming guidance:

Achieving Public Benefits. The extent to which the project or corridor program provides specific, measurable, 

achievable benefits in a timely and cost-effective manner in relation to public sector and Federal investment 

costs. Applications will be evaluated on how well their project or corridor program:

•	 Contributes to economic recovery efforts by creating and/or saving jobs. 

•	 Advances the President’s strategic transportation goals to ensure safe and efficient transportation 

choices, build a foundation for economic competitiveness, promote energy efficiency and 

environmental quality, and support interconnected livable communities.

•	 Furthers other high-speed and intercity passenger rail goals outlined above and in PRIIA. 

Mitigating Risks. Applications will be evaluated on the extent to which their project or corridor program 

addresses critical success factors (i.e., mitigates risk factors), including the approaches and procedures used to 

meet the prerequisites (listed above):

•	 Fiscal and institutional capacity to carry out and manage the project.

•	 Financial projections and plans to cover cost.

•	 Commitments from key stakeholders, including, notably, other States involved in the corridor, and 

the host railroads that own any existing required rail infrastructure.

•	 Experience and procedures for managing project financial, management, and construction risks. 

Other Criteria. Other key considerations include:

•	 Timeliness of achieving benefits.

•	 Sufficiency of the reporting and management approach.

•	 Completeness and quality of the application.

31 Through the requirements specified in 49 U.S.C. § 24403.
Implementation Schedule 

The proposed schedule for implementing this program seeks to balance the constraints facing potential applicants 

with the imperatives of ARRA and of developing a sustainable program for high-speed rail development. It 

contemplates two rounds, each with several solicitations, and subsequent rounds if funds are not completely 

obligated in the initial rounds.32 Figure 10 summarizes the application solicitation schedule, along with the 

policy development activities and outreach (described below in “Next Steps”). 

Round 1. This round covers all three tracks outlined above, using both ARRA and FY 2009 

appropriations funds.

	 Solicitation 1.1 –Projects. This solicitation is aimed at projects (track 1 above) that can either: (i) 

start immediately – i.e., planning, engineering, environmental and other preliminary work has 

all been completed; or (ii) require PE/NEPA work in order to develop firm cost estimates and 

construction plans, and thus be ready-to-go in future rounds. Eligible projects include capital 

projects funded under ARRA that are eligible under Sections 301 and 302 of PRIIA, or capital 

project funded under the FY 2009 Omnibus Appropriations Act (State Grant Program). 

	 Solicitation 1.2 – Corridor Development Programs. This solicitation is aimed at corridor programs 

(track 2 above) that have completed the preliminary planning, environmental, and other preconstruction work required to proceed.33 Eligible programs include phases and/or sections of 

comprehensive corridor development plans funded under ARRA that are eligible under Sections 501 

and 301 of PRIIA. 

	 Solicitation 1.3 –Planning. This solicitation is aimed at State corridor planning efforts (track 

3 above). Eligible projects include planning activities eligible under the FY 2009 Omnibus 

Appropriations Act (State Grant Program).

32 Schedules are preliminary and subject to revision in application guidance document to be released in June.

33 Applicants may include, under the umbrella of the corridor development program applications, projects that they may also have 

applied for in solicitation 1.1.

16
17

Round 2. This round provides an opportunity for resubmission of revised applications that were unsuccessful 

in Round 1, along with new proposals – likely including the same target projects and eligibility criteria. If 

FY 2010 appropriations for HSR/IPR projects are available, they would be coordinated with the ARRA 

solicitations (as in Round 1). Subsequent solicitations may be added to other future funding opportunities 

if ARRA funds remain available.

Applications Due 

(Round #)

Mar Apr

Track 1 - Projects

Draft National 

Rail Plan

HSR PPP 

Proposals

Nov Dec Jan Feb

Outreach/ 

Workshops

Track 2 - Corridor 

Programs

Track 3 - Planning

2009 2010

Oct

Future Policy Development: 2010/11 Budgets; 

Surface Reauthorization; Final Natl Rail Plan

Strategic

Plan

Selections Made

Application 

Guidance

May Jun Jul Aug Sep

➊ ➪

➋ ➪

➋ ➪

➊ ➪

➊ ➪

➋

● ➪

Figure 10 

HSR/IPR Implementation Timeline

Next Steps

This Strategic Plan is just the first of several products intended to further refine and elaborate on the vision for 

a new national network of high-speed intercity passenger rail corridors. The DOT intends to seek structured 

input from stakeholders and the public starting after the release of this plan and throughout the process of 

developing and implementing the strategies to achieve this vision. 

In the coming months, DOT will be completing several Congressionally mandated tasks, and will be initiating 

several others intended to advance this strategy (see Figure 11).

American Recovery and Reinvestment Act of 2009. DOT will be taking the following actions to comply with 

ARRA and advance the strategy outlined in this document:

	 Issue Interim Guidance. DOT will issue guidance detailing eligibility requirements, application 

prerequisites, evaluation criteria and other procedures by June 17 as required in ARRA.

	 Issue Solicitations. DOT will issue solicitations for applications under ARRA and FY 2009 

appropriations per the timeline outlined above.
	 Provide Progress Reports. As directed in ARRA and in Administration policy, DOT will be 

providing frequent, regular reports on progress in implementing the Act.

FY 2010 Budget. The President will be issuing his detailed budget request for FY 2010 in the next month. 

This budget will detail the request for a 5-year, $5 billion program of high-speed rail grants as outlined in the 

President’s budget blueprint issued in February.

Surface Transportation Reauthorization. Further discussions on the development of this new program may be 

included in upcoming discussions on reauthorization of surface transportation programs. As the President 

indicated in his budget proposal, the Administration intends to work with the Congress to reform surface 

transportation programs, both to put 

the system on a sustainable financing 

path and to make investments in a more 

sustainable future, enhancing transit 

options and making our economy more 

productive and our communities more 

livable.

National Rail Plan. Under PRIIA Section 

307, DOT is to develop a National Rail 

Plan that is consistent with approved 

State Rail Plans and national rail needs 

to promote an integrated, cohesive, 

efficient, and optimized national rail 

system for the movement of goods and 

people. The National Rail Plan will expand upon the vision outlined in this document, including identifying 

specific corridor goals and measures of success. The plan will likely provide an opportunity to revise the highspeed rail designations, including a new category of approved corridors, i.e., those corridors for which a detailed 

corridor plan and institutional framework are in place to permit development of a successful corridor that meets 

the national rail goals.

Figure 11

Strategic 

Plan

Interim 

Guidance

Interim 

Guidance

Surface 

Transport 

Legislation

National 

Rail Plan

Outreach/Feedback 

Throughout Process