Future Transportation in Nebraska 1995 - 2015 · "Buildings a better system for Nebraska’s future" Public Transportation Complementing the highway system is a broad array of Public

Nebraska's Statewide Long-Range Transportation Plan

Future Transportation in Nebraska1995 - 2015

EXECUTIVE SUMMARY

"Building a better system for Nebraska's future"

STATE OF NEBRASKA

An Equal Opportunity/Affirmative Action Employer

DEPARTMENT OF ROADSAllan L. Abbott, Director-State Engineer

1500 Nebraska Hwy 2PO BOX 94759Lincoln NE 68509-4759Phone (402) 47l-4567FAX (402) 479-4325

Dear Nebraskans

I am establishing this document as the official Nebraska Statewide Long-Range

Transportation Plan. This is the first such plan which addresses all types of

transportation which are available to our citizens. This plan took over a year to create

and many agencies, organizations, and individuals contributed to its development.

E. Benjamin Nelson Governor

Historically, transportation has been essential in the settling and developing of our

state. A state as vast as ours relies heavily on a transportation network which is capable

of sustaining our rural element as well as supporting our urban areas.

This plan provides the direction for taking our transportation programs into the 21st

Century. To achieve the goals identified in this plan, those same entities which helped

create the plan must now cooperate in a continuing effort to achieve success. Such a

commitment will be necessary if those transportation services necessary to sustain the

'Good Life' are to be realized.

I am, therefore, requesting state agencies to make that Commitment and I am

encouraging organizations and individuals to do likewise.

Sincerely,

E. Benjamin Nelson

Governor

NEBRASKA STATEWIDE LONG-RANGETRANSPORTATION PLAN

EXECUTIVE SUMMARY

Prepared For The

STATE OF NEBRASKA

August, 1995

Prepared byNebraska Department of Roads

Transportation Planning DivisionISTEA Planning Unit.

NEBRASKA STATEWIDE TRANSPORTATION PLAN EXECUTIVE SUMMARY

MISSION STATEMENTMISSION STATEMENTMISSION STATEMENTMISSION STATEMENT

To provide and maintain, in cooperation with public and privateorganizations, a safe, efficient, affordable and coordinated statewide

transportation system for the movement of people and goods.

Nebraska's statewide Long-Range Transportation Plan has been developed in thespirit of this mission statement. It was developed in cooperation with public andprivate organizations and individuals to improve and enhance this coordinatedstatewide transportation system.

"Building a better system for Nebraska�s future " 1


Introduction

The Nebraska Department of Roads, incoordination with other state, local, and tribalagencies and transportation-orientedorganizations, has developed a Statewide Long-Range Transportation Plan to facilitate anefficient, affordable safe, environmentally sound,and coordinated statewide transportation systemfor the movement of people, goods, and serviceswithin and across the state of Nebraska.

Unlike most states, Nebraska�s transportationresponsibility is segmented among several stateagencies, organizations, commissions, localgovernment, and councils. Therefore, several ofthese agencies and organizations have assisted inand contributed to the development of this plan.They include the Nebraska Motor CarriersAssociation, Department of Agriculture, StatePatrol, Game and Parks Commission, PublicService Commission, Rural DevelopmentCommission, Department of Social Services,Department of Economic Development,Department of Aeronautics, MetropolitanPlanning Organizations, Indian TribalGovernments, and other Public interest groups.The organizational structures of agencies andorganizations responsible for transportation inNebraska are detailed in Section VI of theLong-Range Plan.

Why Have a Plan?

The citizens of Nebraska have at their service animpressive variety of quality roadway systems,transit systems, airports, railways, andwaterways. Yet, those who depend upon theseextensive transportation systems are aware thattransportation problems remain which must be

"Building a better system for Nebraska's future "

solved. As the state grows, the demands on thetransportation system increase. The future of thestate and its economy depend on meeting thesedemands as they apply to streets and highways aswell as to each of the other modes oftransportation. The availability of transportationservices and facilities affects the ability ofcommunities as well as individuals to performtheir duties. Many who rely on one or more formsof the transportation system need the system tofulfill their needs. The need to make decisions thatwill affect the economic, environmental, and thesocial well-being of the state has led in part to thedevelopment of this plan. Transportation needs arenot static, but rather evolve as policies, politics,and practices change. This plan must evolve toaddress these changes. The plan did take intoaccount federal and state laws and regulations, theexisting transportation system, financiallimitations, and personnel resources, as well as thepublic interests and goals. The plan addresses allmodes of surface and non-surface transportationsuch as highways, streets and roads, railroads,bicycle and pedestrian facilities, airports,pipelines, and barge facilities. The plan alsoaddresses the issues and goals generated from aPublic Participation workshop. The plan providesdirection for a broad "Framework for Action" bywhich the state's transportation system will beshaped. By planning within the scope of theframework, we can best identify how each modeof the transportation system complements theother as part of an integrated network.

Several long-range transportation plans havebeen developed in recent years. These plansare, by reference, incorporated into and havebecome part of this plan. These respectiveplans are listed as follows:

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A. State Highway Plan and Highway Needs Report - 1988 Needs Report - 1994 State Highway Plan and Needs Report

B. Nebraska Intercity Bus Study/Plan Development - Final Report

C. Local Public Transportation Services Plan (Pending)

D. Nebraska Rail Plan - 1986 Update

E. Nebraska Rail Program Needs

F. State Rail Plan (Pending)

G. Metropolitan Area Planning Agency Year 2020 Interim Long-Range Transportation Plan

H. Transportation Plan 2020 for the Sioux City Metropolitan Area (NE, IA, SD)

I. 1994 Lincoln City/Lancaster County Comprehensive Plan

J. Iowa Tribe of Kansas and Nebraska Transportation Plan - 1986

K. Iowa Tribe of Kansas and Nebraska Transportation Improvement Plan - 1994

L. Sac and Fox Nations of Missouri Transportation Improvement Plan

N. Nebraska Long-Range Bicycle/ Pedestrian Plan (Under Development)

O. A Network of Discovery, a Comprehensive Trails Plan for the State

�Building a better system for Nebraska's future "

of Nebraska

P. An Energy Action Plan for Nebraska - 1992

Q. An Energy Action Plan - The First Year - A Progress Report

R. Nebraska�s Management of Energy Shortages - A Contingency Plan - 1989

S. Nebraska�s Historic Preservation Plan - May 1995

Area Affected By The Plan

Land development and transportation areclosely related. Nebraska, which isgeographically located in the Midwest, isbordered by the states of Iowa, Missouri,Kansas, Colorado, Wyoming, and South

Dakota. The state's geographically central locationoffers many advantages. While access to majormarkets is essential, a central location providesrelatively equal access to all. Figure 1 above,illustrates the geographical location of Nebraska inrelation to the United States. The state is dividedinto 93 counties and has three

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M. Nebraska State Airport System Plan


metropolitan areas (Lincoln, Omaha, and SouthSioux City). The counties vary widely inpopulation. According to the U. S. CensusBureau, the state's resident population in 1960stood at 1,411,330 persons and by 1990 reached1,578,385, amounting to an overall net increaseof 12 percent.

Transportation Past and Present

Transportation has been and will continue to be apowerful force for Nebraska's economic growth.Historically, transportation largely determinedthe settlement of the state. The Nebraska territoryhas served as a conduit for the transportation ofpeople and goods across the country, with thePlatte River Valley providing the principalsurface transportation corridor through theheartland of our country. The major settler routesof the 1840's, the Oregon, Mormon, andCalifornia trails all traversed the Platte RiverValley and communities began to develop tosupply the travelers.

During the 1850's and 60's, the overland stageestablished stations every fifty miles along itsroutes, many of which later became establishedtowns. The first transcontinental railroad passedthrough the Platte Valley and gave vitality tomany already established communities such asOmaha, Fremont, Columbus, and Grand Island.Others which began as Union Pacific stations areLexington, Gibbon, Ogallala, and Kimball.The next transportation benchmark was thedesignation and construction of the firsttranscontinental highway, the "Lincoln Highway."It also passed through the Platte Valley as does itssuccessor, Interstate Highway 80.


Today, much of Nebraska's economy depends onthe transportation industries. The industriesemploy many of our citizens and through themovement of commodities, they supportmanufacturers and agriculture.The transportation system in Nebraska hasdeveloped in both the public and private sectors,separately and in combination. Highways andwaterways have been largely in the publicdomain, while airways and railroads have beenprivately owned, but under public regulatorymeasures.

Highway Systems

The state is served by an extensive network ofhighways. The 9,944 miles of the highway systemunder the Department of Road's responsibilityinclude the interstate highways, U. S. highways,and state highways. About 78,412 miles of therural county road system are under the jurisdictionof the Counties and Townships. TheMunicipalities maintain 7,526 miles of the roadsystem, bringing the total mileage number toapproximately 95,882 miles of road in Nebraska.There are 15,776 bridges on the state's roadsystem. Of the 15,776 bridge structures, 12,442 onthe road system are owned and maintained by thecities or counties, and the remaining 3,334 areowned and maintained by the state.

The interstate highway is a major part of the

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state's, as well as the National Highway System.There are about 437 miles of rural and about 45miles of urban interstate highway in Nebraska. Thisstretch of interstate highway is part of the 45,500miles of the Dwight D. Eisenhower NationalSystem of Interstate and Defense Access highwaysserving all state capitals and most urban populationcenters over 50,000.

Use of the System

The state highway system serves the majorcorridors of traffic movement. The system carries62 percent of all the vehicle miles of travel in thestate, while the vast mileage of the

county roads carries 15 percent of travel. Urbanstreets carry the remaining 23 percent. About 81percent of the heavy trucks that travel in andthrough Nebraska travel on the highway system.Not only does the state highway system have thehighest traffic density, it also serves the longesttrips.

Virtually all the traffic traversing the state east towest and north to south traveled on the statehighway system. The interstate is 0.5 percent of thetotal Nebraska road system and carries 19 percent ofall motor vehicle travel. Table 1 and chart 1 revealthe trend of the vehicle miles traveled in Nebraska.

"Building a better system for Nebraska's future" 5


Safety on our Highway Systems

One way to measure the efficiency of trafficservice on our highway system is by analyzing thetraffic accident data. Traveling by motor vehicle inNebraska is safer today than it was in the past. Thenumber of miles driven on Nebraska roadwayscontinues to increase steadily, thus increasing theopportunity for traffic accidents to occur.

In 1993, nearly 15 billion vehicle miles weretraveled in Nebraska. This represents an increaseof about seven percent over the past four years.As traffic volumes increase on our highwaysystem, accidents have also increased slightly, butnot nearly as much as the percent increase intraffic volume. Those roads which make up thestate system are among the safest roads inNebraska.

Although the State Highway System makes up onlyabout eleven percent of the road mileage inNebraska, it carries nearly 62 percent of the trafficwhile incurring only 37 percent of the trafficaccidents.

"Buildings a better system for Nebraska's future"

Public Transportation

Complementing the highway system is a broadarray of Public Transportation facilities andservices across the state which provide analternative to driving, and mobility for thosewithout an automobile. In the most denselypopulated areas of the state, a combination of citybuses, taxis, handi buses, and tour buses have metand are continuing to meet the mobility needs of thepeople. In rural and small urban areas, local bussystems or other transit services are in placeprimarily to meet many of the needs of those nothaving access to an automobile.

There are 57 bus systems for rural and small urbanareas that service the general public throughout thestate. The Department of Roads administers theNebraska Public Transportation Assistance Program,which provides state assistance for operationalexpenses of public transit systems, and also ofrelated federal programs. The public transportationdata in charts and tables, shown on the next page,reveals the number of vehicles, vehicle miles, andpassenger boardings for rural, small urban, andurbanized transportation systems receiving operatingassistance through the Nebraska Department ofRoads.

The number of vehicles operating in the rural andsmall urban transit systems and the number ofmiles driven have gradually increased from 1984 to1994, while ridership has slightly declined.However, in the urbanized areas all

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three categories, number of vehicles, number of the same time period.miles driven and ridership show declines over

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Airport System

Transit and highway networks provide importantlinks to Nebraska airports. A total of 92 existingairports were considered to be the most importantfacilities that constitute the state's airport system.Figure 2 graphically depicts the locations of thesepublic-use airports. Of the 92 airports, 88 arepublicly owned and operated by either the state, acounty, municipality, or authority type governingbody while four airports are privately

Figure 2 - Existing Airport System

owned and operated by individuals orincorporated entities. There are numerousprivate-use airports and some heliports locatedthroughout the state which are not included in the1992 State Airport System Plan study, since theseairport facilities are not open for public use.Presently only 64 of the airports are eligible forfederal funding.

Aviation Activity

Records of aviation activity in Nebraska includenumbers of airports, enplaned passengers, aircraftoperations etc. There are 11 airports that arelocated in the Metropolitan areas and othercommunities in the state that provide scheduledcommercial passenger air services. Of the 11airports, five of them enplane over 10,000passengers annually and are classified as primarycommercial service airports.



They include the following:

� Central Nebraska Regional Airport(Grand Island)

� Eppley Airfield (Omaha)� North Platte Regional Airport� Lincoln Municipal Airport� William B. Heilig Field (Scottsbluff)

Two of the 11 airports, Kearney Municipal andKarl Stefan Memorial (Norfolk), enplane at least2,500 passengers, but less than 10,000 and areclassified as non-primary commercial serviceairports.The remaining four airports, listed below, providescheduled passenger services but because theyenplane less than 2,500 passengers annually areclassified by the FAA as General

Aviation Airports.

A five year enplanement history of these 11airports is shown in Table 3.

The 78 existing general aviation airports areclassified as following:

49 are classified as Basic Utility/Landing Strip

21 are classified as General Utility 8 are classified as Transport/Business

Jet


� Alliance Municipal Airport� Chadron Municipal Airport� Hastings Municipal Airport� McCook Municipal Airport


The highway and transit networks provide

Railroad System Corporation, known as Amtrak. Amtrak providesdaily service in both directions in Nebraska.Amtrak stations in Nebraska are located inOmaha, Lincoln, Hastings, Holdrege, andMcCook. Table 4 shows the number of railpassengers boarding and/or deboarding at theseStations from 1988 to 1993.

Freight System

Nebraska is served by three major railroads:

important links to the state's rail system. Railhas two components: passenger and freight.Although each is uniquely different in itsoperating characteristics, they share a commonpurpose to transport people and goods in andthrough the state.

Passenger Rail System

Passenger rail service in Nebraska is providedby the National Railroad Passenger


� Union Pacific (UP)

The eastern and southeastern sections ofNebraska have a more extensive network ofrailroads than the rest of the state. In addition tothose listed previously, the following carriersoperate in Nebraska:

� Mid-States Port Authority� Nebraska Public Power District� Western Railroad Properties, Inc.

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� Burlington Northern (BN)� Chicago and Northwestern (C&NW)


Freight - Intermodal Facilities

The movement of freight that involves two ormore modes of transportation is referred to asintermodal freight. This has been one of thefastest growing areas in rail transportation inrecent years.

Piggy-back TOFC (trailers-on-flat cars) andCOFC (containers-on-flat cars) have shownremarkable growth. In relation to total car-loadings, the TOFC/COFC traffic comprisedabout eight percent of the total in 1979 andslightly more than 16 percent in 1988.

The Burlington Northern's intermodal hub inNebraska is located in Omaha. The Chicago andNorthwestern's intermodal hub in Nebraska islocated in Fremont. The Union Pacific majorintermodal hub in Nebraska is located in Omaha.

History of Rail Abandonment

The Staggers Rail Act of 1980 was a steptowards deregulation of the railroad industry,giving the industry a greater freedom to setprices, contract with customers, and sell orabandon unprofitable lines and operation.

As of December 31, 1995, 1,768 miles of railroadlines have been abandoned since 1970. Another 192miles of the lines are potentially subject toabandonment. Figure 2, and tables 5 and 6 show therailroads operating in Nebraska, thc Nebraska milesof railroad trackage owned, and the freightoperating statistics.


� Sidney and Lowe Railroad� Omaha, Lincoln and Beatrice Railroad� Chicago, Central and Pacific Railroad� Atchison, Topeka and Santa Fe Railroad� Fremont and Elkhorn Valley Railroad (Passenger excursion train)� Nebkota Railway, Inc.� Nebraska Central Railroad Company




Barge Facilities / System

The Missouri River on Nebraska's eastern borderprovides a water link to the Gulf of Mexico viathe Mississippi River. Currently, Nebraska has19 barge terminals on the Missouri River atseven locations between Blair and Brownvillewhich are available for service by barge ownersand towing companies.

The amount of barge shipping is affected by thecontrol of the level of river flow. Between 1985 and1989, approximately three million tons of goods weremoved. Only four of the 19 barge facilities inNebraska do not have rail connections.Shown below are the Nebraska Rail-Barge TransferFacilities and the Missouri River Terminals.



Pipeline Transport

There are five major gas transmission lines and20 gas and oil product lines serving the state ofNebraska. These facilities are concentrated in themore populous areas and provide an extensivenetwork in the eastern portion of Nebraska.

Trail Facility / Systems

Prior to the 1980's, most hiking and biking trailswere limited to parks, both municipal and state.During the past 15 years, a number of abandonedrailroad corridors have been converted to trails.Several factors have contributed to the trailexpansion. The U. S. Railroad Revitalization andRegulatory Reform Act, passed by the federalgovernment, allows abandoned railroadrights-of-way to be kept intact, or "railbanked",enabling public recreational trail use. TheNational Trails System Act, also passed by thefederal government, provides preference to partiesdesiring to preserve railroad rights-of-way astrails. These laws have given the general public anincentive for forming trail groups and obtainingfinances. Natural Resources Districts, national,state, and regional trails organizations, and theFederal Transportation Enhancement Programhave been major funding sources.

"Building a better system for Nebraska�s future "

Lincoln has led the state in the development oflocal trails with its growing urban network. Traildevelopment in Omaha is accelerating as well.

Trail development is spreading to other parts ofthe state, ranging from Dannebrog to Nebraska'stwin cities of Scottsbluff and Gering. In Decemberof 1993, the state of Nebraska announcedacquisition of the former Chicago andNorthwestern "Cowboy Line" from Norfolk toChadron as a trail corridor with the continuationof rail service on its western end. This resultingCowboy Trail will become the nation's longestrail-trail system. This recent activity is aimed atdeveloping an interconnecting trails system ratherthan fragmented trail segments.

A Changing Nebraska

There are several factors that can influence thefuture mobility needs and desires, many of whichwill result from changes in population, travelpatterns, and changes in the distribution of goodsin and across the state of Nebraska.

Population Growth

As population increases, the demand for jobs,homes, goods, and services increases. These, inturn, create a need for more transportation and

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transportation facilities which must be located onavailable land. The data presented here reveals thegrowth pattern, distribution, and characteristics ofNebraska's population. In a span of 30 years, thestate has seen its population increased by about167,055 persons. The 93 counties of the state varywidely in population. In the 1980 census, 83 ofthe 93 counties lost population due to theoutmigration from the rural counties to the urbancounties. During the 1970's and 1980's, the statebecame increasingly urban. Chart 4 illustrates thechanges in Nebraska's total population from 1960to 1990. The 1990 census data continues toindicate that many of the state's counties are stilllosing population while the larger urban countiesare gaining. The largest of the gains

occurred in Sarpy County, which experienced a228 percent increase in population since 1960.The Bureau of Business Research at theUniversity of Nebraska-Lincoln is projecting thestate's total population to grow more rapidly in theforeseeable future than it has in the past. Thepopulation is projected to increase by 3.5 percentover the decade from 1990 to 2000. By thefollowing decade, the state's population isprojected to increase by 3.9 percent, resulting in a7.6 percent gain from 1990 to 2010. The

"Building a better system for Nebraska�s future "

rapid increase in population will require anenormous amount of goods and services, whichmust be moved by transportation systems andfacilities. The diversity of our society demandsthat choices in transportation be provided so thatopportunities for living and working aresomewhat equally accessible to all.Transportation planning is being done now tomeet this foreseeable future demand.

Travel Patterns

Various forms of transportation have had theireffect on the development of the state. In terms oftravel within the state, highways serve by far themost.

Highways - As population grows and theeconomic activity expands, travel demands inNebraska will intensify. In 1960, Nebraska'spopulation stood at 1,411,330 persons and by1990 reached 1,578,385, for a 12 percent increase.By comparison, the total number of motorvehicles registered has increased by 89 percent.Overall, automobile registrations have increasedapproximately 64 percent, while truckregistrations increased 164 percent, and buseshave increased by 196 percent. Although thenumber of automobile registrations increasedsubstantially during this 30-year span, their shareof all vehicles registered has dropped from 76percent in 1960 to 64 percent in 1990, while thetruck registration share has increased from 24 to34 percent of the vehicle total. Total vehicle travelin the state is calculated to have increased by 115percent between 1960 and 1990, and reached arecord high of about 15 billion miles traveled onNebraska's roads in 1993. It is estimated that bythe year 2015, if the pattern continues, the vehiclemiles traveled in Nebraska will exceed 20 billionvehicle miles, approximately a 35 percentincrease. It so happens that at present, Nebraskahas sufficient

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miles on its highway system to serve thetransportation needs of its citizens very well andgenerally the highway system is in good physicalcondition. The major efforts of the Department ofRoads over the next several years will be directedtoward maintaining the 10,000 miles of statehighways and upgrading those roads and bridgesthat are still substandard.

Public Transportation - The rural population isaging at a faster rate than the urban population.The 1990 Census reveals that 25 percent of therural population was over the age of 55. Theimpact of the aging population will result in anincrease in the demand for public transportation inthe rural and small urban areas. Many elderly,disabled, and low income individuals not havingaccess to an automobile need public transportationto transport them to nutrition centers, grocerystores, banks, medical centers and libraries. Thenumber of vehicles for the rural and small urbantransit system has increased from 1984 to 1993,except for slight decreases in 1986 and 1992. Thepublic transit system ridership, which increasedfrom 1984 to 1986, shows a decrease in 1987 and1988 and an increase in 1989 through 1993. Inlarge urban areas such as Lincoln and Omaha, theuse of transit systems has decreased since 1984.The abundance of inexpensive gasoline coupledwith the changing lifestyle has contributed to thedecline in the use of public transportation. Thevehicle miles and ridership have fluctuated from ahigh of 7,544,937 and 13,941,035 in 1984 to alow of 5,799,023 and 5,696,505 in 1993.

As the life span of the average Nebraskancontinues to grow, demands on public transit forelderly, disabled, and low income individuals inboth rural and urban areas will increase. In theforeseeable future, based on the current trend inthe number of riderships, the rural

"Building a better system for Nebraska�s future"

transit demand is expected to increase.

Airports - The 1992 State Airport System Planand supplemental FAA data in the (HistoricalCommercial Service Enplanements at NebraskaAirports table 3) on page 9, indicates that theoverall air carrier enplanements have increasedslightly since 1986. At the seven busiest airports,new low-fare airlines have contributed to anincrease in the total commercial serviceenplanements from 1,419,538 million in 1986 to1,534,036 million in 1994, an 8 percent increase.Lincoln Municipal Airport experienced a 3percent increase and Omaha a 15 percent increasefrom 1990 to 1994. Both the Omaha and LincolnAirports during the year 1991 through 1994 haveexperienced and are expected to continue toexperience growth.

The Federal Aviation Administration isforecasting 3.5 to 4 percent annual enplanementgrowths through the year 2015. However, thenine smaller commercial airports in Nebraska willprobably not experience such increases. In somecases, continuation of commercial passengerservice will depend on the continuation ofFederal Essential Air Service subsidies.

Distribution of Goods

The movement of goods is also an important partof the transportation picture. The total ton-milesof freight moved through the state of Nebraskaby rail, truck, and barge is expected to increaseby the year 2015. Although by the year 2015railroads will carry more than they did in 1993,trucks are expected to capture a large share ofthe total freight market.

The billions of miles of transport of both peopleand goods, by motor vehicle, airplane, train, andbarge all make up the base upon which the

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state�s future travel will grow and he shaped

These trends, as well as any possible shifts whichmay result from changes in government policy orother factors, will have to be considered whenplanning the future transportation facilities. Theestimates given here are derived from an extensionof present and foreseeable trends. Unforeseeablechanges in governmental policies and technologycould alter the transportation picture.

The New Federal Requirements

The federal Intermodal Surface TransportationEfficiency Act (ISTEA), which became law inDecember of 1991, is designed "to develop aNational Intermodal Transportation System that iseconomically efficient, environmentally sound,provides the foundation for the nation to compete inthe global economy, and moves people and goods inan energy-efficient manner." The act (ISTEA)requires each state to develop a statewidelong-range Intermodal Transportation Plan. Itrequires the development and implementation by thestates of seven management systems. The purposeof the management systems is to more effectivelymanage existing transportation facilities.Following is a list of the management systems:

1. Pavement Managementa) National Highway System (NHS)b) Non-NHS Federal-Aid Highways

2. Safety Management

3. Bridge Management

4. Public Transportation Management


5. Congestion Management

6. Intermodal Management

7. Traffic Monitoring

The ISTEA planning requirements also call for astrong public involvement.

As a result of the act's requirements, the NebraskaDepartment of Roads conducted a publicparticipation workshop and a series of otherstatewide public involvement conferences in aneffort to elicit responses to the StatewideLong-Range Transportation Plan from the broadestpossible range of transportation customers. Thestatewide long-range transportation planningprocess began with the public participation process.

Public Participation In This Plan

Participation in the development of this planinvolved meetings and workshops, havingspecific agendas and purpose, and by mailingssoliciting comments.

Presentations regarding the plan were made atseveral meetings, including the following:

� Rural Development Commission� Nebraska Association of County Officials� Native American Transportation Coordination Conference

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Meetings were held with several Indian Tribesat their respective Tribal headquarters.

A PLAN COMMITTEE meeting was held tobrief the attendees on the status of the plan andobtain comments, suggestions and concerns.Representatives of eight state agencies, the threeMetropolitan Planning Organizations (MPO's),the five Indian Tribes, the Federal HighwayAdministration, the Federal TransitAdministration, the Bureau of Indian Affairs,and the National Forest Service were invited.The meeting was very productive.

The major public participation activity was aLong-Range Transportation Plan Workshop

ISSUES AND GOALS

held on August 29,1994. Approximately onehundred and ten representatives of public andprivate agencies, organizations, and businesses,as well as individuals having an interest intransportation, attended the workshop. Thepurpose was to bring together a broad range ofpeople to identify and address futuretransportation issues that should be consideredduring the next 20 years. The group initiallyidentified 159 issues for discussion.

A facilitated consolidation exercise condensedthe issues down to 14, which were considered bymajority vote as the most important. A 15th issuewas added from meetings and othercommunications with the Tribal officials andrepresentatives of the Bureau of Indian Affairs.

These issues and goals are listed as follows:

Following is a discussion of each of the 14 issues resulting from the August 29, 1994 PublicParticipation Workshop plus a 15th issue added during the development of the plan, accompaniedwith one or more goals for each one:

ISSUE 1EFFICIENT MOVEMENT OF COMMERCIAL VEHICLES OPERATIONS - BOTHINTERSTATE AND INTRASTATE.

Discussion of this issue revolved around two basic concerns, time- consuming and disruptivegovernment requirements, and the movement of hazardous materials.

GOAL: To eliminate government requiredduplication of motor carrier record keeping andfiling.

Responsible entities: Department of Roads,Department of Motor Vehicles, Public ServiceCommission, Department of Revenue and StatePatrol.

The motor carrier industry is concerned about


the duplication of record keeping within Nebraskastate government and also between states. InNebraska, five different agencies have authorityfor motor carrier operations. A 1993 "CommercialVehicle Operations Institutional Issues Study"identified the numerous forms required to be filedin order to obtain total compliance to operatelegally in this state. A task force representing thetransportation industry is pursuing simplificationof filing

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� Eight Annual Department of Roads Information Meetings


requirements.

GOAL: Utilize electronic technology for moreefficient movement of motor carriers.

Responsible entities: State Patrol, Department ofRoads, Nebraska Motor Carries' Association.

Expanded use of weigh-in-motion to eliminatemany stops at scales stations was also discussed.However, scales personnel perform duties otherthan checking weights. They performinspections and check driver and vehicledocuments.

New technology is being tested to allowelectronic monitoring of vehicle and driverinformation while the vehicle is in motion.

GOAL: Study the issue of the movement ofhazardous material and develop policies for thepublic protection..

Responsible entities: State Patrol, Department ofRoads, Fire Marshall, Civil Defense and PolicyResearch Office.

The transport of hazardous materials was a majorconcern. Although the participants referred to"hazardous waste". It appeared that hazardousmaterial in general was their concern. The wholeissue of hazardous material routing, monitoringand accident response involves agencies at boththe state and local level. One suggestion was torequire permitting and routing of hazardousmaterial and payment for clean up of spills.

ISSUE 2SAFETY IMPROVEMENTS ON NEBRASKA ROADS.

Discussion of this issue included concern regarding driver behavior and the safety oftransportation infrastructure.

GOAL: Reduce accidents at railroad gradecrossings through installation of warningdevices, grade separations or closures.

Responsible entities: Department of Roads,and the Highway-Rail Crossing SafetyCommittee.

The danger at railroad grade crossings was aconcern. As of April, 1994, there were 4,116 atgrade railroad crossings in Nebraska, of which658 had train activated protection. During 1993,75 grade railroad crossing accidents resulted in 44injuries and 9 fatalities. Increases in both trainand motor vehicle traffic is increasing theexposure to conflicts. The NebraskaHighway-Rail Crossing Safety


Committee, created by 1995 Legislation will bestudying this issue and makingrecommendations.

GOAL: Eliminate all geometric deficiencies onthe state highway system.

Responsible entity: Department of Roads.

Improvement of roadways was also encouraged.The Department of Roads' 1988 Needs Studyidentified 4,941 miles of deficient highwayswith geometric needs. Significant progress hasbeen made in removing these deficiencies. Withthe completion of the FY1995 program, thenumber of deficient miles is 3,497.

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GOAL: Upgrade the priority commercialsystem to the 1988 needs study criteria.


In addition to these geometric needs, goals existfor the priority commercial system. The prioritycommercial system initiated in 1988 provides acontinuous network of routes which are designedto carry higher traffic volumes. This system isbeing developed with two 12 foot driving lanesand 10 foot shoulders, 8 feet of which are to bepaved. Currently, approximately 830 miles do notmeet this shoulder criteria.

GOAL: Complete the expressway systemidentified in the Needs Study.


The 600 mile expressway system has 409 milesremaining to be built. Consider improvement tofour-lanes on rural state highways that have adesign year traffic volume of 6000 or greaterADT.

GOAL: Provide lighting at those rural highwayintersections where established criteria dictates.

Responsible entities: Department of Roads.

Concern has been expressed about the safety atsome unlit rural highway intersections.

GOAL: Develop a Safety Management Systemwhich addresses these legal and judicial issues.

Responsible entities: Department of MotorVehicles, Department of Roads, State Patroland Attorney General.

Concern was also expressed about theenforcement/prosecution of traffic laws andinadequate driver education. Several people werefrustrated that offenders were cited, but not fullyprosecuted. They felt that mandatory penalties areneeded for the operation of over capacity trucks,for driving while intoxicated, and other drivingoffenses. One suggestion was that civil penaltiesapply to overweight loads. The penalties wouldapply to shippers, receivers, owners or drivers.

GOAL: Develop an organized educationalprogram for all users of transportation systems.

Responsible entities: Game and ParksCommission, Natural Resources Districts, Localtrail owners and organizations of hikers andbikers.

Concern was expressed about the education andre-education of transportation users. Not onlyvehicle drivers, but bikers, skaters, and other trailusers were included.It was noted that trail accidents are starting tooccur and this trend will probably increase asusage increases.

ISSUE 3MEETING URBAN AND RURAL TRANSPORTATION NEEDS (INCLUDING SMALLTOWNS)

This issue is a composite of multiple concerns. The transportation needs of the elderly, disabled andlow-income families and individuals was one concern. The concern was a lack of adequatetransportation to allow these people to go where they need to. Inadequate allowance for pedestriansand bicyclists to cross expressways was mentioned.



GOAL: Assess the need for local publictransportation and develop a program to meet thatneed.

Responsible entities: Department on Aging,Department of Social Services, Department ofRoads, Public Transportation CoordinationCommittee, representative local governments andorganizations representing the transportationdisadvantaged.

Adequate public transportation for the elderly,disabled and low-income persons is a continuingproblem. This transportation can be provided by aprivate source, such as a nursing home, or by apublicly funded source such as a county or town.Public transportation funding is inadequate to serveall these needs. Several efforts have been made atconsolidating the private and public services,including school buses, but these efforts have notbeen successful.

ISTEA allows the use of federal highway funds forthe purchase of public transportation vehicles.

The state is assisting in the provision of intercity busservice. This program is discussed under Issue 7"Mass Transportation."

GOAL: Monitor freight and parcel servicesstatewide.

Responsible entity: Public ServiceCommission

Historically, deregulation of transportation hasresulted in the reduction, and sometimes theelimination of service to non-urban areas.

A concern is, that subsequent to thederegulation of the motor carrier industry, asubstantial reduction in freight and parcelservice to the non-urban areas will occur.

ISSUE 4APPLICATION OF INTELLIGENT VEHICLE HIGHWAY SYSTEMS (IVHS)TECHNOLOGY

IVHS, now referred to as Intelligent Transportation Systems (ITS), is a federally initiatedprogram to utilize modern electronic and computer technology to more efficiently usetransportation systems.

The objectives of the program are to (1) streamline traffic operations; (2) enable informed route selection;(3) enhance individual and system performance; (4) help avoid accidents; 5) improve mobility; (6)provide automated vehicle control and safety systems to prevent collisions and; (7) allow safer trafficflow.

Five functional areas have been designated (1) Advanced Traffic Management Systems (ATMS); (2)Advanced Traveler Information Systems (ATIS); (3) Advanced Vehicle Control Systems (AVCS);(4) Commercial Vehicle Operations (CVO) and; (5) Advanced Public Transportation Systems (APTS).

Omaha is involved in a cooperative ITS project with the Metropolitan Area Planning Agency, theNebraska Department of Roads, the University of Nebraska and a consultant. ITS funds are

"Building a better system for Nebraska's future " 21


being utilized to develop a plan to reduce future traffic congestion. The latest devices to locate andmanage incidents and control traffic are being investigated.

The Nebraska Motor Carriers' Association and appropriate Nebraska state agencies have joined aconsortium of several midwestern states in a Multi-State One-Stop Electronic Purchase of MotorCarrier Credentials (Midwest States) project to demonstrate and lay the foundation forimplementation and deployment of a system that will enable motor carriers to request, pay for, andreceive registration, fuel tax, operating authority, and overdimensional credentials electronicallyfrom the base state or the necessary individual states.

The City of Lincoln has inquired about applying for ITS funds to develop a future city traffic plan.

GOAL: Develop incident managementprograms where needed.

Responsible entities: Department of Roadsand Local Government Entities.

Traffic congestion usually results when someincident disrupts the flow of traffic. This incidentmay be an accident, a malfunction of a vehicle orof a traffic control device or some otheremergency occurrence which requires thererouting of traffic. Immediate location andidentification of the incident is essential and anautomatic rerouting of traffic is desirable. Amethod to electronically locate an incident andautomatically reroute traffic would go a long wayto alleviating congestion.

GOAL: Develop an effective and equitablyfunded process to allow a maximum of

uninterrupted flow of commercial vehicles.

Responsible entities: Department of MotorVehicles, State Patrol, Public ServiceCommission, Department of Roads, NebraskaMotor Carriers' Association and other states.

The efficient movement of commercial vehiclesboth intrastate and interstate will require Nebraskato invest in the Intelligent Transportation System(ITS) technology. Truck traffic continues toincrease and this is creating dangerous congestionat the scales facilities.If enforcement efforts can be concentrated onthose vehicles that are operating outside statestatutes or federal regulations, this congestion willbe relieved. Another factor is the economy ofcarrier operation resulting from uninterruptedtravel.

ISSUE 5PROVIDE ADEQUATE, FAIR AND EQUITABLE RESOURCES FOR ALLTRANSPORTATION MODES

This issue generated more conversation and opposing viewpoints than any other issue. The FederalIntermodal Surface Transportation Efficiency Act of 1991 heightened the expectations ofnon-highway transportation interests. The Act created and funded an Enhancement Program forhistoric preservation of transportation facilities and for creation of trails and scenic byways. The Actalso requires each state to have an Intermodal Management System, a Public TransportationManagement System and a Transportation Plan which includes all surface transportation.



A category of federal funds called State Transportation Program (STP) was established to replace theFederal Aid Secondary Roads Program. Those funds, in addition to the traditional road and bridgeprojects, can be used for Public Transportation capital purchases and for Enhancement projects.

GOAL: Develop and implement fundingguidelines within the restrictions of fundingproviders, in coordination with transportationinterests and the legislature, for funding oftransportation modes.

Responsible entities: Governor'sTransportation Task Force, Department ofRoads and other transportation entities.

Since the need for highway funds far exceeds thatwhich is available, other than those fundsearmarked for enhancement, no highway fundsare readily available for non-highway purposes.Therefore, this plan assumes that proposed newprograms must be accompanied by a financialstatement which identifies a funding source.

Comments varied from "don't compromise onemode's financing for another", to "all users of afacility should contribute to upkeep", to"available funds should be shared".

Currently, state fuel taxes, vehicle registrationfees and vehicle sales taxes are restricted to theupkeep of highways, roads, streets, and bridges,with the exception of an annual appropriation fortransit operations. Federal-Aid Highway Fundsare used for highway, road, street and bridgeconstruction and for enhancement projects.Federal-Aid Transit funds are used for Transitprograms. Omaha has used some Federal-AidHighway Funds for transit. Local governmentsuse local wheel taxes, property taxes andassessments for their road, street, and transitprograms.

The Americans With Disabilities Act requires


public transportation providers to have facilitiesand vehicles which are accessible by the disabled.These adjustments add to the cost of providingservice.

The Nebraska Railway Council administers theLight-Density Rail Line Assistance Act. Thisprogram provides funding, via a revolving loanfund, for rail-line acquisition, rehabilitation orimprovement, operation, and rail facilityconstruction projects.

Trails are funded by Natural Resources Districtfunds, ISTEA Enhancement funds, local taxesand contributions.

A Recreation Road Program is funded by $1.50from each vehicle registration.

A railroad crossing separation program isfunded in part by railroad train-mile tax, andrailroads also contribute to grade crossingprotection projects.

Thus far, the legislature has not chosen toprovide state funds for rail or trail programs.Several years ago, the legislature failed by onevote to authorize purchase of thc Chicago andNorth Western northern line, although theyauthorized the Railway Council to own andoperate a railroad.

In 1994, the C&NW northern line wasrailbanked. The Rails to Trails Conservancypurchased the line and converted it into theCowboy Trail.

Two years ago, the Game and Parks

23


Commission was authorized to accept the sameC&NW rail line right-of-way as a trail's gift.

GOAL: Develop innovative, but acceptablemethods to finance special road needs.

Responsible entities: Local Government,Department of Roads, and Department ofEconomic Development.

A situation which occurs quite often is a requestfor funds for unexpected special needs. Somerequests are for roads to areas being newlydeveloped (development roads) for industrial

sites. The Rural Development Council providesthis comment. "Nebraska and its 535 communitieswork very hard at economic development. A keyelement to Nebraska's economic developmentprogram is industrial recruitment and expansion.Success with recruitment and expansion createstransportation needs. These needs often surfaceoutside of the normal planning and priority settingprocess.There is a critical need for Nebraska to develop aprocess to accommodate and meet the unexpectedtransportation needs associated with industrial sitedevelopment. "

ISSUE 6MAINTAIN AND ENHANCE THE TRANSPORTATION INFRASTRUCTURE

This issue represents the need for the continued reliance on the highway, road and street network asthe state's fundamental transportation system. Although several participants strongly objected to anymore highway construction, most supported the need for a well maintained and adequate highwayand farm to market roads network. However, there was also concern about the continuedmaintenance of trails. Preservation of railroads was also addressed.

GOAL: Resurface highways at optimum time toprovide surface integrity and serviceability.


Resurfacing of our highways to maintain surfaceintegrity and rideability has always been a goal ofthe highway program.

GOAL: Complete construction of the prioritycommercial system including expresswaysidentified in the needs study.


In 1988, the state established a state highwayPriority Commercial System of 3,303 miles,which system includes 609 miles ofexpressways. The non-expressway portion of


this system is to be developed with two 12-footdriving lanes and 10-foot shoulders, eight feet ofwhich will be paved. An evaluation of anticipatedfinancing may require reassessment ofexpressway priorities, criteria and designstandards.

GOAL: Maintain hiking and biking trails to astandard acceptable to both the users and thepublic.

Responsible entities: Game and ParksCommission, Natural Resources Districts, andother owners of trails, Department of Roads.

Hiking and biking trails are experiencingsubstantial growth since passage of theRails-To-Trails Act and ISTEA DesignatedEnhancement Program. Most trails are within

24


or extend from large population centers. Thesetrails are popular beyond early expectations.Users are able to enjoy the trail and return to theirstarting point within several hours. Eighty percentof the Federal Enhancement Funds have beendedicated to the development of these trails.

To maintain a trail can be quite expensive.Although initially skeptical, adjacent propertyowners are finding that trails are beingmaintained in a satisfactory manner.

GOAL: To develop a strategy for thepreservation of rail service or rail corridors.

Responsible entities: Department of Roadsand Department of Economic Development.

Many trails are being created as a result of a railabandonment. Some rail lines being proposed forabandonment can possibly be continued underoperation by a short-line operator. Continuationof branch line rail services is desirable to supportagricultural and other shipping alternatives. Thefirst priority is to retain the rail service. In thoseinstances where it is not feasible to retain the railservice, preservation of the rail corridor should be

ISSUE 7MASS TRANSPORTATION

pursued.

GOAL: Assess the current status and futureneeds of the rural road and bridge network.

Responsible entities: Nebraska Association ofCounty Officials, Department of Roads and theDepartment of Agriculture.

Agricultural commodities are being shipped bymore and larger trucks. Demands on rural roadsand bridges are beyond available fiscal yearresources.

GOAL: Transportation agencies to periodicallyreview their respective transportation systems toassure that changing service demands are beingaddressed.

Responsible entities: Departments of Roadsand Aeronautics, Counties and Municipalities.

Several comments were made regarding the needfor transportation agencies to periodically reviewtheir systems, the criteria used and the strategiesfor investing in those systems, to make sure theyare reflective of changing needs. Although suchreviews are being done, this is being included.

This issue involves bus and rail passenger service. Timely connections between passenger systemswere encouraged. About 70 percent of Nebraska's counties have some type of local passenger service.These systems transport primarily the elderly and disabled, but they must also be available to anyone.These systems require reservations and may serve only one community or all communities in thecounty. Usually several days a month are scheduled for trips to a regional urban center. Only Fremont,Lincoln, Omaha, and South Sioux City have scheduled bus service.

The main intercity bus service is provided by Greyhound operating on the interstate. Other intercitybus service is provided by Black Hills Stage Lines which operates between Norfolk and Omaha,Denver Coach which operates between Chadron and Denver, K & S Express which



operates between Norfolk and Chadron, Eppley Express which operates between Kearney andOmaha and Dashabout Shuttle which operates between Denver and Omaha via McCook andHastings. K & S, Black Hills and Dashabout are subsidized by state and federal funds. Also, the BlueRivers Aging Agency, which operates local services in southeast Nebraska is subsidized to extendtheir service to Lincoln and Omaha.

GOAL: Implement, as feasible, the intercitybus plan.


Traditionally Nebraska has relied on the privatesector to provide intercity bus passenger service.Deregulation of the bus industry allowed theabandonment of service on unprofitable routes.Nebraska has developed an intercity bus plan fora subsidized system. That plan calls for adequateintermodal connections and the expansion andcoordination of local systems to provide intercityservice.

GOAL: Retain current AMTRAK service bygovernment and support groups forming apromotion coalition.

Responsible entities: Department of Roadsand Pro-Rail Nebraska.

There were suggestions to expand AMTRAK anddevelop a Lincoln-Omaha light rail system. TheCity of Omaha has studied the feasibility of alight rail system.

In Nebraska, local and state governmentinvolvement with rail passenger service hasgenerally been limited to position statementssupporting retention or expansion of service.

As the federal government continually questions

the level of financial support of AMTRAKservice, additional local and state effort may benecessary to retain Nebraska rail passengerservice. The 1995 Rail Plan Update includes areview and discussion of rail passenger servicein Nebraska, including AMTRAK.

GOAL: Develop a program to encourage ridesharing by commuters.

Responsible entities: Nebraska Energy Office,Local Urban Governments, and Department ofRoads.

Traffic congestion is often the result of commutertravel. During the fuel crises of the 1970's, theshortage of fuel and sharply rising prices providedenough incentive for some to form car pools.Some employers provided vans for poolingemployees. Strategically located park-and-ridefacilities encouraged car pooling.

GOAL: Urban transit systems continue toreview routing and transfer connections.

Responsible entities: Urban Transit Systems.

In urban areas, many passengers must make oneor more transfers before reaching their finaldestination. Sometimes no affordabletransportation is provided for the next leg of thetrip, or a substantial wait is required for the nextconnection.



ISSUE 8RESEARCH AND DEVELOPMENT

This is an interesting issue because it entails a variety of concepts. Participants urged quicker use ofresearch findings and changing technologies. We're also encouraged to apply non-transportationsolutions, such as teleconferencing, telecommuting, working at home and transporting services ratherthan people. The study of economic and environmental impacts of alternate modes of transportationwas discussed.

GOAL: Expedite implementation of successfulresearch and share findings.

Responsible entities: Department of Roads,Department of Economic Development,University of Nebraska and Rural DevelopmentCommission.

GOAL: Maximize the use oftelecommunications to reduce or eliminatecommunications type travel, such as meetings,

ISSUE 9ENHANCE TOURISM AND RECREATION

training or observation.

Responsible entities: Public ServiceCommission and University of Nebraska.

Nebraska is a leader in telecommunications.Educators are skilled at using this technology toreach students at a number of locations. Recently,a doctor in Omaha directed a surgical procedurewhich took place in a Central Nebraska hospital.

With one of the nation's principal and historic transportation corridors traversing Nebraska, tourismhas become the State's third largest industry. Workshop participants felt that more should be done toidentify and provide access to tourist and recreation sites. More emphasis on scenic byways, historicsites and hiking and biking trails was encouraged.

GOAL: Promote suitable development oftourism, historical, and recreational facilities,including directional signing and historicalmarkers.

Responsible entities: Department ofEconomic Development, Game and ParksCommission and Department of Roads.

The Department of Roads and the Department ofEconomic Development are developing a TouristOriented Directional Signing (TODS) Program.This program will allow signs, similar to theLOGO signs which identify food, gas and

lodging services available to the travelingpublic. The cost of the program will be fundedby the tourism industry.

GOAL: Identify and develop, where feasible,scenic byways, and biking and hiking trails thatinclude provisions for scenic attractions,heritage tourism development and historicpreservation enhancement.

Responsible entities: Department of Roads,Department of Economic Development, Gameand Parks Commission, Historical Society, andLocal Governments.

"Building o better system for Nebraska�s future" 27


The Department of Roads in coordination withthe State Historical Society, the Department ofEconomic Development, and the Legislature hascontracted with a consultant to study thefeasibility of a scenic byways system, and iffeasible, how to implement it.

The proposal will include scenic and historiccorridors, their development, promotion, andenhancement.

The Corps of Engineers has conducted a "Backto the River" study for a scenic system fromOmaha to the north. The Omaha and WinnebagoTribes are interested in developing aninterpretative center on this system.

GOAL: Participate in Nebraska StatewideTourism Plan and development, includingemphasis on heritage tourism development andrelation to travel and transportation issues.

Responsible entities: Department ofEconomic Development, State HistoricalSociety, Department of Roads.

The Nebraska Task Force on HistoricPreservation (May 1995) has identified that thedevelopment and promotion of historic placesshould be a leading element of the State's traveland tourism strategy.

GOAL: Improve the process for coordinatingland-use and transportation to recognize andenhance older and historic neighborhoods, towncenters and downtowns, archeological sites, ruraland cultural landscapes, and other historic placesand their environs.

Responsible entities: Department of Roads,State Historical Society, Local Governmententities, Nebraska Lied Main Street Program.

ISSUE 10BETTER COORDINATION OF INTERMODAL FORMS OF TRANSPORTATION

Participants felt that all modes of transportation should be considered as options. Commentsincluded considering all modes when planning and developing systems. Corps of Engineerdecisions should consider impacts on barge transportation.

GOAL: Instill the practice of intermodalcoordination and consideration by alltransportation interests when planning anddeveloping intermodal system enhancements.

Responsible entities: All transportationentities.

Most transportation systems in Nebraska havetraditionally been planned and developed incoordination with other modes. Department ofAeronautics must consider current and futureroad plans to prevent conflicts. Department of


Roads, counties and towns must considerrailroad activities, as well as pedestrians andbicyclists when designing transportationfacilities.

The Department of Roads, in coordination withother modes, is developing an intermodalmanagement system.

The purpose is to have a systematic process ofidentifying key linkages between one or moremodes of transportation, and where theperformance of one mode will effect another.

28


ISSUE 11ENERGY EFFICIENCY IN ALL MODES

Workshop participants discussed the conversion to alternate fuel usage and the use of moreenergy efficient vehicles.

GOAL: Promote programs to increase theavailability and financing of alternate fuels andvehicles designed to use them.

Responsible entity: Nebraska Energy Office.

Alternate fuels create less air pollution, reducereliance on imported fuel and provide a market foragriculture products. Alternate fuels such ascompressed natural gas, electricity, ethanol,propane, methanol and oxygenated fuels can beused for transportation. A major drawback,however, is alternate fuels and fueling sites arenot widely available.

The need for improved energy efficiencybecomes more important as fuel consumption fortransportation continues to increase. For example,motor fuel consumption in Nebraska (gasoline,special fuel and gasohol) increased by 11 percentbetween 1984 and 1993. When converted toBritish Thermal Units (BTU), this amounted to24 percent of all energy consumption statewide in1992. The Nebraska Energy Office has beeninstrumental in promoting the use of alternatefuels for transportation. Technical informationand low-cost financing programs are readily

ISSUE 12BETTER COORDINATION BETWEEN LAND-USE AND TRANSPORTATION

available.

GOAL: Provide proper signage for the varioustypes and availability of refueling sites foralternate fuels such as natural gas, propaneethanol and others.

Responsible entities: Department of Roads,Nebraska Energy Office and LocalGovernmental Entities

As the statewide infrastructure for alternatefuels continually develops, it will becomeincreasingly important to provide adequatesignage regarding the types and location ofrefueling sites.

GOAL: Improve fuel efficient driver practicesthrough education.

Responsibility entity: Nebraska EnergyOffice.

A major factor in fuel consumption is operatorpractices. Proper vehicle selection, maintenance anddriving techniques can improve overall efficiency,save energy and save operating dollars.

This issue concerns the traffic problems created when development takes place which is notcompatible with the traffic capacity of an adjacent transportation system. Greater control of land-usewas suggested. Developers should be required to participate in traffic congestion mitigation. Arelated concern was the impact of bypasses on downtown business and mitigation of economicand/or social impact of transportation projects on the older center of communities,

�Building a better system for Nebraska's future" 29


historic districts or neighborhoods.

GOAL: Improve the process for thecoordination of future land-use developmentwhen planning long-range transportationimprovements.

Responsible entities: Department of Roads,Department of Economic Development andLocal Government entities.

Currently, the one authority that the Departmentof Roads has regarding land-use development isunder corridor protection laws. If the Departmentplans to construct a facility at some future time insome corridor, they can file for corridorprotection, and then have the right to review andact on any proposed development.

On some highway locations, the Departmentcontrols the access to highways and developermust request that access. In these situations,

ISSUE 13INTERAGENCY COORDINATION

the developer must pay for any necessaryhighway alterations.

Land-use regulation is under the authority of localjurisdictions, not the state. However, statehighway improvements can and do impact, orgenerate, adjacent development.

GOAL: Develop a process for effectivecooperation between developers andtransportation agencies.

Responsible entities: Department of EconomicDevelopment, Department of Roads and LocalGovernment.

Development projects create unique demandsfor transportation support. There is a need for abetter process for coordinating developmentprojects with transportation systems.

Interagency coordination refers to federal, state, local and tribal governmental agencies. Whendiscussing coordination, the participants often referred to sharing, not just working together andsharing ideas, but sharing costs, facilities and financial concepts. A greater understanding of theresponsibilities and requirements of various agencies was mentioned.

GOAL: Resolve transportation issues throughincreased coordination between agencies.

Responsible entities: All transportationentities.

Substantial agency coordination has taken placefor some time. Several multi-agencytransportation advisory committees are active,and the Department of Roads and the State Patrolshare facilities. The participants felt that


better and less expensive service can result frommore coordination and sharing.

The state has initiated a "TransportationEfficiency Project" to examine state policy andorganization relating to transportation issues, inorder to enhance economic development andcustomer service. Two task forces have beencreated to initiate the project. The TransportationIndustry Task Force consists of representatives ofthe transportation industry

30


and the Transportation Interagency Efficiency transportation role.Task Force consists of state agencies having a

ISSUE 14RECOGNIZE AND PRESERVE HISTORIC, ENVIRONMENTAL, AND SCENICRESOURCES

There was concern about the protection and enhancement of historical sites and the environmentthrough construction and maintenance practices. It was also recognized that historic preservation andenvironmental conservation have important interrelationships with transportation planning/policy.Intelligent chemical usage and the design of liveable roadways was promoted.

GOAL: Minimize wetland encroachmentduring transportation facility design andconstruction.

Responsible entities: Department ofEnvironmental Quality and all transportationsystem developers.

Environmental concerns related to transportationinvolve preservation of wetlands, trees andgrasslands, air quality and restricted chemicalusage. Federal law regulates the management ofwetlands. The state, counties, municipalities,tribes, and trails developers are all covered bythe same federal regulations. The NebraskaDepartment of Roads has designatedorganizational units to address wetlandspreservation and for landscape development.

The Department strives to avoid wetlands whendesigning projects, but sometimes it is necessaryto encroach on wetlands. Wetlands are beingcreated in selected locations to off-set any losses.

GOAL: Minimize disruption to thesurrounding environment by saving trees andother desirable flora consistent with goodengineering judgement, with specialconsideration for healthy trees and plants.


Responsible entities: All transportationsystems developers.

The Department of Roads has a landscapingpolicy which addresses the need for saferecovery areas for out-of-control vehicles, theconservation and enhancement of the naturalenvironment and the use of living snow fencesand other plantings for erosion control.

GOAL: Create environmentally friendlyroadsides.

Responsible entities: Department of Roads,Counties, and Municipalities.

The Department in conjunction with theUniversity of Nebraska and the Game and ParksCommission has developed an environmentallyfriendly roadside program. Native grasses andwildflowers which can exist in the transportationenvirons, plus a limited mowing practice providea pleasant view. Habitat for birds and smallanimals is also the result.

GOAL: Optimize the preservation andmitigation of historic and archeological sitesunder Nebraska Highway Survey Legislationand the National Historic Preservation Act.

Responsible entities: Nebraska Historical

31


Society and Department of Roads.

GOAL: Maximize the use of the TransportationEnhancement Program for the preservation andenhancement of historic, cultural, andarcheological properties and their environs.

Responsible entities: Nebraska HistoricalSociety and Department of Roads.

Historic preservation has importantinterrelationships with transportation planning inareas of community development and planning,protection and enhancement of the environment,and transportation policy. The Nebraska TaskForce on Historic Preservation (May 1995)identified recommendations for historicpreservation, archeology, communitydevelopment, tourism and land-use planning.

The Department of Roads for 34 years has

ISSUE 15TRIBAL ISSUES

contracted with the University of Nebraska and theState Historical Society to ensure the preservation ofsites that are found as a result of construction. Thecurrent ISTEA Enhancement Program provides for arange of historic preservation activities. TheDepartment has a contract for a historic bridgeprogram and participates in the Nebraska HistoricalMarker Program.

GOAL: Support the Nebraska Lied MainStreet Program.

Responsible entities: Department of Roads,Department of Economic Development, StateHistorical Society and UNL College ofArchitecture.

The newly created Nebraska Lied Main StreetProgram is aimed at revitalizing the older historictown centers of Nebraska Communities.Transportation enhancement funds participate in thisprogram.

This issue was derived from meetings and other communications with tribal officials andrepresentatives of the Bureau of Indian Affairs. The primary concerns are employment andtransportation access.

Five Indian Reservations are located in Nebraska, The Iowa, the Omaha, the Sac and Fox, the Santee, andthe Winnebago. A sixth tribe, the Ponca, is a recognized tribe, but at this time, has no defined reservation.

GOAL: Provide opportunity for the employmentof tribal forces and the training of tribal personnelin the transportation industry.

Responsible entities: Department of Roads,Tribes, and Counties.

The Department of Roads is involved in several


employment ventures with the Omaha Tribe. Tribalcrews perform right-of-way maintenance onhighways traversing their reservation. TheDepartment is considering involvement in acooperative training program to familiarize tribalpersonnel with highway construction andmaintenance. Other tribes have expressed interest inthese programs.

32


Goal: Include coordination with Tribes and theBureau of Indian Affairs when developingtransportation plans and programs.

Responsible entities: Department of Roadsand Local Governments.

Tribes have requested better access to variety oflocations. Roads to some housing developmentsare in poor condition and are not signed. Onerequest was to pave a road to provide better accessto a state college. One tribe described existing andextensive planned housing development in thevicinity of state highways.

Concern was expressed for adequate pedestriansafety and the allowance for access roads to thedevelopments. Most of these roads are under

CONCLUSIONS

Two conclusions are to be drawn from this plan.

A

local jurisdiction. One tribe is interested inpublic transportation.

It has been suggested that our state, county andmunicipal planning and programming processesneed to formalize a method of coordinating withtribes and the Bureau of Indian Affairs on roadprograms.

GOAL: Continue to consider tribal trails forEnhancement Funding.

Responsible entities: Department of Roadsand Enhancement Committee.

Several suggestions for trails development withenhancement funds were made. Some of thetrails were related to tourist attractions. At leastone tribal trail has been approved.

The role performed by and the needs of the transportation system are considerable. The everincreasing demands for personal travel and goods movement will require substantial privateand public support for transportation over the next twenty years.

B The urgent need exists to coordinate the existing and future transportation system with allother transportation modes into a workable plan.

The foundation to a successful plan for a balanced transportation system is to define the problems tobe solved, to determine the public responsibility, and to formulate an overall plan in which thecombination of private and public investment can be made.

Much remains to be done in defining the role which the various entities should play in thedevelopment of the overall multi-modal transportation network.



The Nebraska Department of Roads wishes to thank all of you for your contribution in thedevelopment of the plan. The plan, which is 230 pages long, contains nine sections and an appendix.If you have questions, comments or are interested in obtaining a copy of the plan, or of this summaryplease feel free to do so. The visually impaired or handicapped may, upon request, obtain copies ofthe plan, or sections of it, either on cassette tape or in braille.

Requests and comments should be addressed to:

Strategic Planning ManagerNebraska Department of RoadsP O Box 94759Lincoln, NE 68509-4759Phone (402)-479-4519Fax (402)-479-3884


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