Federal Lands Access Program

FLMA Webinar

CENTRAL FEDERAL LANDS HIGHWAY DIVISION

Planning, Programming & Environment

Jill Locken, Federal Lands Access Program Manager

Andrew Valdez, Access Program Lead Planner

For External Use

Rocky Mountain Arsenal NWR, CO
Presentation

Outline

• Who is Federal Lands Highways?

• FLAP Program Overview & Application Packet

• General Housekeeping and Q&A

Key Points

La Sal Mountain Loop Road, UT
Federal Lands Highway (FLH) 

Mission

Improve transportation to and within Federal and Tribal Lands by:

1. Building effective, efficient, and reliable networks of federal public roads and bridges; to protect and enhance 

the Nation's natural resources; and to provide needed transportation access for Native Americans.

2. Providing financial resources and transportation engineering assistance for public roads that service the 

transportation needs of Federal and Indian lands.

Soledad Road, NM
US Department 

of Transportation

Federal Highway 

Administration

Office of 

Federal Lands 

Highway

Federal 

Lands Div. 

Offices

Office of 

Technical 

Services

Resource Center 

& National 

Highway Institute

Directors of 

Field Services

Federal Aid 

Division Offices

Others

Federal Lands Highway

Organization

Federal Lands 

& Tribal 

Partners

2-Way

Partnership
Federal Lands Highway

Division Offices

Western Federal Lands

WFL

Eastern Federal Lands

EFL

Central Federal Lands

CFL

Ashburn, VA

Division Office

Lakewood, CO

Division Office

Vancouver, WA

Division Office
FLH

Core 

Capital

Programs

The Program for Federal Partners The Program for Non-Federal 

Partners for Federal 

FLTP

Federal Lands Transportation Program 

Improve transportation facilities owned and

maintained by a federal agency – typically

within a national park, forest, wildlife refuge,

BLM lands, BOR lands, or USACE lands.

FLAP

Federal Lands Access Program 

Improve transportation facilities owned 

and/or maintained by a non-federal agency 

providing access to, adjacent to, or location 

within federal lands (typically National Parks, 

Forests, Wildlife Refuges, BLM lands, BOR 

lands, and/or USACE lands)

The Program for Tribal Partners for 

Tribal Lands

The Emergency Program for Federal 

Partners

TTP

Tribal Transportation Program 

Provide safe and adequate transportation and 

public road access to and within Indian 

reservations, Indian lands, and Alaska Native 

Village communities.

ERFO

Emergency Relief of Federally Owned 

Transportation

The intent of the ERFO program is to pay the

unusually heavy expenses for the repair and

reconstruction of eligible facilities. The ERFO

program is not intended to cover all repair 

costs but rather supplement Federal Land

Management Agency (FLMA) repair programs.
Central Federal 

Lands (CFL)

Mount Whitney Portal, CA

• 14 central and SW States, Hawaii and & Pacific 

Territories.

• FLH is at the forefront of delivering distinctive, 

context sensitive, innovative, and sound engineering 

projects.

• “Cradle to Grave” transportation engineering 

services of highways and bridges providing access 

to/through federal lands.

• Proven experience and ability to solve and manage 

unique challenges in dynamic environments, geography 

and complexity, through engineering solutions 

sensitive to the context of the land.
Truckee River Bridge – Ribbon Cutting, CA

Partnerships

• Government to Government Relationship

• Strong PM centric organization

• Single POC – Project Manager

• Partner Agency and/or Federal Lands 

Management Agency (FLMA) involvement 

tailored to project needs

• Strong partnerships with local agencies and 

FLMAs

• The best projects bring together State, local, 

MPO, and FLMAs to address mutual needs

Truckee River Roundabout, CA
FLAP Program

Cottonwood Pass, CO

Background • Created in MAP-21 and continues in the 

Bipartisan Infrastructure Law (BIL)/Infrastructure 

Investment Jobs Act (IIJA).

• $286M to $309M annually authorized 

(2022-2026) in BIL.

• BIL expires 2026

• Anticipate Congress to authorize new 

legislation or extension.

Goals • Improve transportation facilities that provide 

access to, are adjacent to, or are located within 

Federal lands.

• Emphasis on high-use Federal recreation sites 

and Federal economic generators.
FLAP Funding

Allocated by Legislative Formula

Category I: 

80% of Funds go to States with 

1.5% or more of Federal Land 

on a National scale

Category II:

Remainder goes to States with 

less than 1.5% of Federal Land 

on a National scale

First 

Sub-allocation

Within each 

category, the 

funds are 

further 

allocated based 

on:

Second 

Sub-allocation

Recreational 

visitation 

30%

Federal 

land area 

5%

Federal public 

road mileage 

55%

Federal 

public 

bridges 

10%
FLAP Funding

Federal Land by State & 2023 Allocation

80% of FLAP

> 1.5% of Federal Land

20% of FLAP

< 1.5% of Federal Land

Central Federal Lands States

- California $30.7M

- Colorado $15.9M

- Utah $12.1M

- Nevada $11.9M

- Arizona $11.2M

- Wyoming $10.3M

- New Mexico $8.2M

- Texas $3.2M

- Oklahoma $1.2M

- South Dakota $1.2M

- North Dakota $1M

- Kansas $766K

- Nebraska $329K

- Hawaii $308K

Fiscal Year 2022 2023 2024 2025 2026 BIL Total

Authorization $286 M $292 M $297 M $304 M $309 M $1.44 B
FLAP Match Requirements

Match requirement was removed in BIL, this only applies to projects selected into the 

program prior to BIL

Central Federal Lands States

- Texas 20.00%

- Oklahoma 20.00%

- Hawaii 20.00%

- Nebraska 20.00%

- Kansas 20.00%

- North Dakota 19.07%

- South Dakota 18.05%

- Colorado 17.21%

- New Mexico 14.56%

- California 11.47%

- Wyoming 9.51%

- Utah 6.77%

- Arizona 5.70%

- Nevada 5.00%

CFL

States
FLAP Leveraged Funds

Notes:

• FHWA cannot receive non-profit and private funding directly

• Funding source needs to be identified, but can be transferred in installments over duration of project 

if needed

Eligible Fund Types

• Federal-Aid, Local, State, or Tribal Sources

• Title 23: Federal Lands Transportation Program (FLTP)

(NPS, USFS, FWS, BOR, BLM, USACE, Presidio Trust)

• Tribal Transportation Program Funds 

• Other Title 23 Funds: Surface Transportation Block Program, Highway Bridge Improvement Funds, 

High Risk Rural Roads (HRRR), BUILD, INFRA, etc.

• Other Federal Funds that are not Title 23 or 49, if their statutes and policies allow
FLAP Leveraged 

Funds

Federal Lands Transportation Program (FLTP –

federally owned & maintained) projects can be 

combined with FLAP projects to bundle projects of 

mutual interest (FLMA & locals)

Conditions:

• PDC and FLMA agree

• Projects are contiguous/adjacent

• Managed as a single construction contract.

• Preference to be single PS&E designed by single agency

• PDC may require local agency to contribute funding. This is 

meant to:

1. Ensure local involvement or

2. Extend the FLAP program in the state

Bryce Canyon Multi-Use Path, UT
FLAP Leveraged Funds

Federal Lands Transportation Program (FLTP – federally owned & maintained) projects can be 

combined with FLAP projects to bundle projects of mutual interest (FLMA & locals)

Example:

• FLAP Project (improve County Road) = $1M

• FLTP Project (Scenic Drive to Parking = $300K

Total Project = $1.3M

• FLAP: $1M

• FLTP: $300K

• FLTP funds CAN be combined with FLAP 

funds, they qualify as leveraged funds

Applying Local Agency

• No or low cost burden

• CFL can assume design & delivery of project

• Local agency can claim a 23% overmatch in the 

application
FLAP Project Delivery

Does CFL have to deliver/lead selected projects? 

No, but our mission is to deliver the Program. We may choose a different delivery agency when:

• The Project has already been designed

• The Project scope doesn’t fit into CFL’s “niche”. Some past examples have been:

• High-speed divided highway auxiliary lanes

• Bridge repairs

• Transit projects

If FHWA-CFL is Lead Agency If Other Agency

• Typical for CFLHD to act as the lead agency 

from selection to completion

• Capable of delivering most FLAP projects

• Lead agency for NEPA and Title 23 requirements

• Provides technical studies and information for 

partner agency to complete CEQA

• Must provide justification, including examples of 

delivering Title 23 funded projects of similar size 

and complexity

• Follow applicable Local Assistance Procedures 

Manual

• FHWA Division Office and State DOT will have 

Stewardship & Oversight

• FLAP funding typically fixed
FLAP Programming

Who makes programming decisions? 

Each state has a Programming Decisions Committee (PDC), a 

volunteer board.

PDC responsibilities include:

• Develop their own processes and evaluation criteria

• Establish the next call for projects

• Review applications

• Shortlist and select projects

State PDC

State DOT 

Local

Appropriate political 

subdivision of the State

FHWA

FLAP Program Manager

Cottonwood Pass, CO

FLMA TAG
FLAP Eligibility Requirements

Per legislation, any public highway, road, bridge, trail or transit system located on or adjacent to Federal 

lands.

• Any transportation project eligible for assistance under Title 23

• Rehabilitation / Restoration / Construction / Reconstruction

• Engineering and Environmental Compliance 

• Operation & maintenance of transit facilities

• Planning & Research

• Title and/or maintenance responsibility is vested with State, County, Local Government, or Tribes

Changes to FLAP in BIL

• Local match no longer required!

• New eligibility! 

• Context sensitive solutions

• Interpretation, signage & wayfinding 

• Visual mitigation & landscaping 

What kinds of projects are FLAP eligible? 
FLAP Eligibility Scenarios

Notes: 

• Tribal roads maintained by the tribe are eligible. 

BUT the roadway must access Federal Lands 

other than tribal (ex. NPS, FWS, etc.)

• Tribal lands are not eligible Federal Lands as the 

destination for this program (TTP)

• Land leased by the Federal Government is not 

eligible.

ELIGIBLE: Road/facility starts outside 

federal land and ends inside federal land, 

with maintenance agreement.

ELIGIBLE: Road/facility starts outside 

federal land and ends short of federal 

land.

ELIGIBLE: Road/facility starts outside 

federal land and ends at of federal land 

boundary.
FLAP Eligibility Scenarios

Common Scenario:

• Access to reservoir/lake is typically 

through State or County Park

• Roads leading to or within the Park that 

are not federally maintained: eligible.

• Potential to leverage FLAP, FLTP, State, and 

Local Funds

Bureau of 

Reclamation or 

US Army Corps 

Managed Lake or 

Reservoir
FLAP Preferred 

Projects

Preference is given to transportation facilities 

providing access to Federal high-use recreation 

sites and economic generators.

• Federal recreation: Any site used by the public to 

recreate on federal public lands

• ‘High-use’ is defined for a region/local area and not 

compared across the state (not every county has a 

Grand Canyon!)

• Federal economic generator: Any use of/on federal 

lands that increases aggregate investment or 

economic activity for local community and/or region 

(ski area, energy production, etc.)

South Fork Smith River Bridge, CA
Strong Applications

Shortlisted & Selected Projects Typically Include:

• Full roadway reconstruction

• Roadway realignment

• Shoulder widening

• Multimodal (bike lanes, multi-use path)

• Roadway rehabilitation

• Full depth reclamation

• Guardrail replacement

• New, full-depth asphalt

• Bridge replacement • Multi-use trail (additions, expansions, or 

improvements)

• Reasonable Scope + Realistic Project Estimate + FLMA coordination & support + Proposed Project 

Meets the FLAP Vision = Successful Application

NOTE: PDCs set selection criteria and have the ultimate programming decision.
Risk Factors That Can Reduce Competitiveness of a Project:

• Maintenance-only focus

• i.e. Chipseals, mill and overlay

• Lack of photos, maps, and exhibits that convey 

the purpose & need

• Underlying issues not addressed in application 

scope

• Poor subgrade left as is

• Damaged and/or undersized culverts to remain

• Deficient guardrail to be left in place

• Poorly written applications

• Questions left unanswered

• Unrealistic cost estimates

• Unaccounted engineering & NEPA costs

• Insufficient unit prices and/or contingency

• Does not access high-use federal recreation sites • Lack of coordination with Federal Land 

Management Agency (FLMA)

• ADT majority traffic is commuters & residential 

• Suggestion: If the project accesses a high-use recreation site, but there are many residences or businesses, 

consider proposing local leveraged funds.

Weak Applications
FLAP Web & Call for Projects

For Current Call Status, see FLAP 

webpage above

• Open typically 90 days per cycle

• Cycle occurs every 3-4 years for most 

states, may change due to inflation or 

funding limitations

• See website for updates, detailed 

program information, Q&A, guidance, 

etc.

http://flh.fhwa.dot.gov/programs/flap/

1. General Info

2. Background

3. Proposed Project

4. Funding 

5. Evaluation Criteria

6. Endorsement Form

7. Non-Construction

8. FLMA Support Form 

9. Checklist
Application 

Overview

1. General Info

2. Background

3. Proposed Project

4. Funding 

5. Evaluation Criteria

6. Non-Construction

7. Endorsement Form

8. FLMA Support Form 

9. Checklist

Submit more 

than one if 

multiple 

FLMAs.

Ensure FLMA is 

ready for the 

project.

FLAP SAMPLE APPLICATION
Selection Process

Call for 

Projects

• Typically open for days, CFL tries to have calls every 3-4 

years per state, inflation has changed this significantly.

Project 

Shortlist

• It is up to the PDC to determine if an interim step is needed 

to refine projects.

Scoping & 

Final Selection

• A CFL-led project team will conduct preliminary engineering 

and identify any major project risks/contingencies, PDC will 

deliberate and determine final program.

1

2

3
Wyoming Timeline

1

2

3

75 Days 45 Days 5 Months 2026-2027

Call for Projects Open

February 15th

to April 30th

PDC/FLMA/TAG 

Application Review & 

Selects Shortlist of 

Projects

Shortlist Meeting June 15th

Project Scoping 

by CFL

August 2024 to 

End of Year

PDC Selects 

Final Program 

By End of January 

2025

Construction

Project 

Design & 

Delivery
• Loan-Borrow Between States

• During Multi-year Highway Bill we can loanborrow across states and programs

• Loans must be repaid the final year of any 

transportation bill

• Lack of Loan-Borrow impacts flexibility to 

obligate funds

• Obligation Goals ≥ 95% of funds

• End of Year Specifics

• Try to maximize obligations

• BUT only if they make good business sense!

• Cannot run afoul of “pick it and stick it” 

rule in Anti-Deficiency Act (can’t obligate 

and then swap funds)

• Unobligated funds are carried over to next 

FY but are subject to lop-off

Final Housekeeping

FLH 

Programming 

Contacts

Jeff Mann

HQ

Jacinda Russell

EFL

Samantha Shields

WFL

Jill Locken

CFL
Q&A 

Andrew Valdez

FLAP & Community Planner

720-963-3329

andrew.valdez@dot.gov

Jill Locken

FLAP Program Manager

(720) 963-3342

jill.locken@dot.gov