If you need this document translated into Spanish or another language, or need a paper copy, please contact the MTPO Transportation Planning Coordinator, by phone at (423) 434-6272 or email at jcmpo@jcmpo.org. 

Spanish Translation of the above statement:

Si usted necesita este document resumido en espanol contacta por favor al Coordinator del MTPO , numero de telefono (423) 434-6272, correo electronico jcmpo@jcmpo.org.

The Johnson City Metropolitan Transportation Planning Organization ensures compliance with Title VI of the Civil Rights Act of 1964; 49 CFR, part 26; related statutes and regulations to the end that no person shall be excluded from participation in or be denied the benefits of, or be subjected to discrimination under any program or activity receiving federal financial assistance from the U.S. Department of Transportation on the grounds of race, color, or national origin.

Table of Contents

Metropolitan Transportation Planning Process Certification

Adoption Resolution

List of Abbreviations

1       Introduction

1.1                            About the Johnson City MTPO

1.2                            Metropolitan Planning Area

1.3                            Organizational Structure

1.4                            Purpose of the Document

2       Program Development

2.1                            Planning Horizon

2.2                            Project Selection

2.3                            Project Phases

2.4                            Advanced Construction

2.5                            National Goals of the Federal-Aid Highway Program

2.6                            Federal Planning Factors

3       Public Participation

3.1                            Coordination and Consultation Process

3.2                            Title VI / Environmental Justice

3.3                            ADA and Transition Plans

3.4                            Public Transportation Program of Projects

3.5                            Annual Listing of Obligated Projects

4       Financial Plan

4.1                            Fiscal Constraint

4.2                            Revenue Sources

4.3                            Cost Estimation

4.4                            Ongoing Maintenance and Operations Cost

4.5                            Funding Programs

5       TIP Amendment and Modification Procedures

5.1                            Project Thresholds

5.2                            Amendments

5.3                            Administrative Modifications

6       Status of Projects in FYs 2020-2023 TIP

7       Projects to Carryover from FYs 2020-2023 TIP to FYs 2023-2026 TIP

8       Illustrative Projects

9       Performance Measures and Targets

9.1                            What is Performance-Based Planning and Programming?

9.2                            Transportation National Goals with Performance Measures and Targets

9.3                            Transit National Goals with Performance Measures and Targets

9.4                            Linking Performance Measures and Targets to Project Selection from the MTP to the TIP

10         Individual Project Sheets for the FYs 2023 – 2026 TIP

Section A:  Surface Transportation Block Grant Program – Local Allocation to MPO Projects (STBG-L)

2017-16                   Traffic Signal for SR 34 (US 11E/E Jackson Blvd) & Tiger Way

2022-01                   Downtown Johnson City Crosswalk Safety Project

2022-02                   Johnson City Traffic Signal Grouping

2023-10                   Linear Path and Tweetsie Trail Connector

2023-11                   Roundabout at Overmountain Drive

2023-12                   Overmountain Drive Extension

2023-13                   Traffic Management Center

2023-16                   Christian Church Road Improvements

2023-17                   Old Gray Station Road Section 2 at SR 75 Traffic Signal

2023-18                   ITS Fiber Optic Expansion

Section B: Surface Transportation Block Grant Program –  State Projects (STBG-S)

2006-11                  Knob Creek Road Extension – Section 1

2090015                  Knob Creek Road – Section 2 (06040)

2090565                  Surface Transportation System Preservation and Operation Urban Grouping

Section C: Highway Safety Improvement Program (HSIP)

2090595                  Safety – Urban Grouping

Section D: National Highway Performance Program (NHPP)

2090560                  National Highway System Preservation and Operation Urban Grouping

Section E: Transit Projects (FTA)

2023-01                   JCT Transit Operating – Sec. 5307

2023-02                   JCT Capital – Sec. 5307

2023-03                   JCT Transit Capital – Sec. 5310

2023-04                   JCT Transit Capital – Sections 5307 & 5339

2023-05                   JCT Operating – Sec. 5317 (New Freedom)

2020-06                   JCT Transit Operating – Sec. 5316 (Job Access)

2023-07                   NET Trans Operating Expenses

2023-08                   NET Trans Capital Purchases (Revenue Vehicles)

2023-09                   NET Trans Mobility Management

2023-14                   Enhanced Mobility of Seniors and Individuals with Disabilities Program Grouping

Section F:  Transportation Alternatives

2023-19                   Historic Covered Bridge Structural Rehabilitation

2023-15                   Transportation Alternatives Program Grouping

Section G: Financial Summary Tables

Financial Summary of Highway Funds

Financial Summary of STBG-L Funds (Local Allocation to MPO)

Financial Summary of Transit Funds

Appendix A:  Public Participation Documentation

Appendix B: Memorandum of Agreement

Appendix C:  Statewide Grouping Descriptions

Appendix D: Highway Funding Program Descriptions

Metropolitan Transportation Planning Process Certification

In accordance with 23 CFR 450.336, the Johnson City Metropolitan Transportation Planning Organization and the Tennessee Department of Transportation hereby certify that the metropolitan transportation planning process is addressing major issues facing the Johnson City, TN urbanized area, and is being carried out in accordance with the following requirements:

1.  23 U.S.C. 134 and 135, 49 U.S.C. 5303 and this subpart;
2. In nonattainment and maintenance areas, sections 174 and 176(c) and (d) of the Clean Air Act, as amended (42 U.S.C. 7504, 7506(c) and (d)) and 40 CFR part 93;         

III.    Title VI of the Civil Rights Act of 1964, as amended (42 U.S.C. 2000 d-1) and 49 CFR part 21;

1.  49 U.S.C. 5332, prohibiting discrimination on the basis of race, color, creed, national origin, sex, or age in employment or business opportunity;
2. Section 11101 (e) of the Infrastructure Investment and Jobs Act (IIJA) (also known as the “Bipartisan Infrastructure Law”) (Pub. L 117-58) and 49 CFR part 26 regarding the involvement of disadvantaged business enterprises in USDOT-funded projects;
3.  23 CFR part 230, regarding the implementation of an equal employment opportunity program on Federal and Federal-aid highway construction contracts;

VII.   The provisions of the Americans with Disabilities Act of 1990 (42 U.S.C. 12101 et seq) and 49 CFR parts 27, 37, and 38;

VIII.            The Older Americans Act, as amended (42 U.S.C. 6101), prohibiting discrimination on the basis of age in programs or activities receiving Federal financial assistance;

1. Section 324 of Title 23 U.S.C. regarding the prohibition of discrimination based on gender; and
2. Section 504 of the Rehabilitation Act of 1973 (29 U.S.C. 794) and 49 CFR part 27 regarding discrimination against individuals with disabilities.

Signature: ________________________________      Date: ________________________

Randy Trivette

Chair, Johnson City MTPO Executive Board

__________________________________________     Date: _________________________

Ronnie Porter                                                              

Director, TDOT Program Development &

Administration Division           

Adoption Resolution

A RESOLUTION OF THE EXECUTIVE BOARD OF THE JOHNSON CITY METROPOLITAN TRANSPORTATION PLANNING ORGANIZATION (MTPO)

To Approve and Adopt the Fiscal Years 2023 – 2026 Transportation Improvement Program (TIP)

              WHEREAS, the Johnson City MTPO is responsible for carrying out a comprehensive, cooperative, and continuing transportation planning process throughout portions of Carter, Sullivan, Unicoi and Washington Counties; and

              WHEREAS, the Infrastructure Investment and Jobs Act (IIJA) (Public Law 117-58, also known as the “Bipartisan Infrastructure Law”) requires that each MPO adopt a four-year work program that consists of a program of transportation projects to be advanced during the program period; and

              WHEREAS, the TIP is comprised of projects that are derived from the MTPO’s adopted Metropolitan Transportation Plan, which serves as a guide for the development of the TIP; and

              WHEREAS, the Johnson City MTPO Executive Board determines the use of various Federal Highway Administration funds, including Surface Transportation Block Grant Program, National Highway Performance Program, Highway Safety Improvement Program, Federal Transit Administration programs, and other federal transportation funds that are made available for Johnson City MTPO area projects, as listed in the TIP; and

              WHEREAS, no Johnson City MTPO area highway or transit projects are eligible for Federal funds until they are programmed into the TIP; and

              WHEREAS, the Johnson City MTPO has involved the public and interested stakeholders as detailed by the Public Participation Plan, which includes a public review and comment period of no less than fourteen (14) calendar days; and

              NOW, THEREFORE, BE IT RESOLVED, that the Executive Board of the Johnson City Metropolitan Transportation Planning Organization hereby approves and adopts the Johnson City MTPO Fiscal Years 2023 – 2026 TIP.

MTPO Executive Board, Chair                                                                             Date

MTPO Executive Secretary                                                                                  Date

List of Abbreviations

AC                        Advanced Construction

ADA                     Americans with Disabilities Act

ACQ                     Acquisition of vehicles or equipment

ACNHPP              Advance Construction National Highway Performance Program

BFP                      Bridge Formula Program

BIL                       Bipartisan Infrastructure Law

BIP                       Bridge Investment Program

CAP                      Capital Expenditure

CFR                      Code of Federal Regulations

CMAQ                 Congestion Mitigation and Air Quality Improvement Program

CONST                Construction

CRP                      Carbon Reduction Program

CRRSAA              Coronavirus Response and Relief Supplemental Appropriations Act

E+C                      Existing plus Committed       

ER                        Emergency Relief Program

IIJA                      Infrastructure Investment and Jobs Act

FHWA                 Federal Highway Administration

FLAP                    Federal Lands Access Program

FLTP                     Federal Lands Transportation Program

FTA                      Federal Transit Administration

FFY                       Federal Fiscal Year

HIP                       Highway Infrastructure Program

HSIP                     Highway Safety Improvement Program

IA                         Improving Manufacturing Public Roads and Opportunities for a Vibrant Economy (IMPROVE) Act

ITS                       Intelligent Transportation System

JCT                       Johnson City Transit System

MAINT                Maintenance

MAP-21                             Moving Ahead for Progress in the 21^st Century Act

MOA                   Memorandum of Agreement

MPA                    Metropolitan Planning Area

MPO                    Metropolitan Planning Organization

MTP                     Metropolitan Transportation Plan

MTPO                  Metropolitan Transportation Planning Organization

NEPA                   National Environment Policy Act

NET Trans          Northeast Tennessee Regional Public Transit

NEVI                    National Electric Vehicle Infrastructure Formula Program

NHFP                   National Highway Freight Program

NHPP                   National Highway Performance Program

NHS                     National Highway System

OP                        Operating Expenditure

PE-N                    Preliminary Engineering (NEPA)

PE-D                    Preliminary Engineering (Design)

PHSIP                  Penalty Highway Safety Improvement Program

PM                       Performance Measures

POP                     Program of Projects

PPP                      Public Participation Plan

RCP                      Reconnecting Communities Program

ROW                   Right of Way

RTP                      Recreational Trails Program

SHSP                    Strategic Highway Safety Plan

SR                        State Route

SS4A                    Safe Streets and Roads for All Grants

STBG-L                Surface Transportation Block Grant Program – Local Allocation to MPO

STBG-S                Surface Transportation Block Grant Program – State

STIP                     State Transportation Improvement Program

TAP                      Transportation Alternatives Program

TERM                  Transit Economic Requirements Model

TDOT                   Tennessee Department of Transportation

TIP                       Transportation Improvement Program

TR                        Training

U.S.C.                  United States Code

UZA                     Urbanized Area (redefined as urban area)

YOE                     Year of Expenditure

1         Introduction

1.1      About the Johnson City MTPO

The Johnson City Metropolitan Transportation Planning Organization (MTPO) was established in 1982 when the 1980 Census identified the Johnson City Urbanized Area (urban areas with a population of at least 50,000).  Federal law requires the Johnson City MTPO to conduct transportation planning activities within the Johnson City Urbanized Area in a continuous, cooperative, and comprehensive process, as defined in the following federal legislation and regulations:

• Current Surface Transportation Reauthorization Act – Infrastructure Investment and Jobs Act (IIJA), also known as the Bipartisan Infrastructure Law (BIL);
• Previous Surface Transportation Reauthorization Act – Fixing America’s Surface Transportation (FAST) Act;
• Metropolitan Transportation Planning – Title 23 of the United States Code (U.S.C.), Section 134;
• Formula Grant Program for Metropolitan Planning – Title 49 of the U.S.C., Section 5303;
• Metropolitan Transportation Planning and Programming – Title 23 of the Code of Federal Regulations (CFR), Section 450; and
• Metropolitan Transportation Planning and Programming –Title 49 of the CFR, Section 613, Subpart A.

1.2      Metropolitan Planning Area

Under current federal law, at a minimum, any urbanized area (UZA) with a population over 50,000 must be in a Metropolitan Planning Area (MPA) for a Metropolitan Planning Organization (MPO). The MPA is a boundary around the urbanized area that identifies additional areas that are expected to become urbanized within the next twenty (20) years.  Please note, in 2022, the Census Bureau defined areas as either rural or urban in new criteria and did away with the term urbanized area, even though the federal transportation law still refers to it. The Johnson City MTPO MPA consists of the Town of Bluff City, the City of Elizabethton, the City of Johnson City, the Town of Jonesborough, a portion of the Town of Unicoi, and parts of Carter, Sullivan and Washington Counties.  The map in Figure 1 on the next page shows the Johnson City MTPO Urbanized Area, as well as the MPA boundaries.  The current boundary was adopted by the Johnson City MTPO Executive Board at its meeting on October 9, 2014 and approved by the Governor of the State of Tennessee on December 17, 2014.

Figure 1

1.3      Organizational Structure 

The Johnson City MTPO is comprised of an Executive Board, an Executive Staff (technical committee) and administrative staff.  The Executive Board is the overall governing body for the Johnson City MTPO and is supported by the Executive Staff and the Johnson City MTPO administrative staff.  The administrative staff of the Johnson City MTPO is housed by the City of Johnson City.  As required by federal law, the Johnson City MTPO is responsible for coordinating transportation planning activities for all its member jurisdictions.  Figure 2 on page 11 shows the Organizational Structure of the Johnson City MTPO.

Figure 2

Johnson City MTPO Organizational Chart

1.4      Purpose of the Document

As part of the metropolitan planning requirements, the Johnson City MTPO develops and regularly updates a Transportation Improvement Program (TIP).  The purpose of the TIP is to identify and program all transportation projects within the Johnson City MPA that are funded by federal programs in Titles 23 (Highways) and 49 (Transportation) of the U.S.C.  The TIP is cooperatively developed at least every four (4) years by the Johnson City MTPO administrative staff in conjunction with its member jurisdictions, Tennessee Department of Transportation (TDOT), Federal Highway Administration (FHWA), Federal Transit Administration (FTA), and providers of public transportation.  The TIP is included by reference in the Statewide Transportation Improvement Program (STIP) and adopted by the Johnson City MTPO Executive Board and the Governor of the State of Tennessee.  The TIP contains all federally funded and regionally significant locally funded projects, of which no regionally significant locally funded projects are currently planned. The TIP includes proposed federally funded capital and non-capital surface transportation projects or project phases. 

Once a draft TIP is completed, it is submitted to TDOT, FHWA, and FTA for comments. Once the comments have been adequately addressed, the TIP follows the process in the Public Participation Plan (as described on page 16) to provide public notice and an opportunity for the public to comment.  Once any public comments are addressed, the TIP is recommended for adoption by the Johnson City MTPO Executive Board.  Then, the final TIP is forwarded to TDOT to be included by reference in the STIP and approved by FHWA and FTA.

2         Program Development

The projects that can be included in the TIP range from new construction and capital improvements for highway, transit, bicycle and pedestrian facilities, intercity transportation, to operational and safety improvements.  Consideration is also given to operational strategies from the Johnson City MTPO Regional Intelligent Transportation System (ITS) Architecture and Deployment Plan, the Johnson City Coordinated Public Transit-Human Services Transportation Plan, Americans with Disabilities Act (ADA) Transition Plans, TDOT’s Three Year Work Program and 25-Year Long-Range Transportation Policy Plan, the Johnson City Unified Planning Work Program, and the Strategic Highway Safety Plan (SHSP) for Tennessee.    

2.1      Planning Horizon

All projects in the TIP are derived from the Johnson City MTPO 2045 Metropolitan Transportation Plan (MTP), which is a plan that is required to cover at least a twenty (20) year timeframe of planning for projects in the future.  TIP projects include either the MTP (Long Range Plan #) Project Number or state the project is consistent with the overall objectives with the MTP.  The 2045 MTP was adopted on February 22, 2018.  A new 2050 MTP is currently in the draft process and will be adopted on or before February 22, 2023.  At a minimum, the TIP is required to cover at least a four (4) year horizon.  This TIP covers the federal fiscal years (FFYs) period of October 1, 2022 to September 30, 2026.  The previous TIP covered the FFYs period of October 1, 2019 to September 30, 2023 and was adopted on December 20, 2019.  The next TIP will cover the FFYs period of October 1, 2025 to September 30, 2029, and the development cycle will begin in early 2025.

2.2      Project Selection

The Johnson City MTPO considered many factors important to the area during its project selection process, which are the same as the previous TIP.  Those factors are shown in Table 1 on the next page.  Projects that are submitted by local jurisdictions are scored according to the factors for inclusion in the TIP.  More detail on the project selection process is provided in Section 9.4 on page 44.  A call for projects was issued on October 27, 2021. The MTPO staff held a TIP workshop on November 16, 2021. Several new highway and ITS projects were submitted by mid-March 2022. Staff consulted with local jurisdictions and TDOT to determine the status of projects in the current TIP.  Staff also reviewed available funding and the capacity of the local governments to provide the required match to the federal funds for projects. The final TIP, after state and federal review, will then be formally presented to the Executive Board, which has the responsibility as the governing policy board to adopt the TIP.  Projects in the first year of the TIP constitute an agreed to list of projects for inclusion in the TIP.

2.3      Project Phases

The TIP is just one part of a project’s journey through the planning and approval process.  Projects in the TIP must first appear in the MTP or consistent with the MTP.  One project can have many phases – preliminary engineering, environmental process, design, right-of-way purchase, and finally, construction.  It can take many years for one project to complete all phases and be ready for construction, so not all phases may be included in this TIP.  In order to add a project phase to the TIP, funding must be identified and be reasonably expected to be available in order to ensure the TIP remains fiscally constrained.  Table 2 on page 14 lists the types of project phases found in the TIP and a brief description, along with a Glossary in Appendix D that provides in-depth descriptions.

Table 1

2.4      Advanced Construction

Advanced Construction (AC) is a technique which allows a State to initiate a project using non-federal funds while preserving eligibility for future Federal-Aid funds. Eligibility means that FHWA has determined that the project technically qualifies for Federal-Aid; however, no present or future federal funds are committed to the project. After an AC project is authorized, the state may convert the project to regular Federal-Aid funding provided Federal funds are made available for the project.

An AC project must meet the same requirements and be processed in the same manner as a regular Federal-Aid project. All phases of a project must meet federal requirements for the National Environmental Policy Act (NEPA), Uniform Relocation Assistance and Real Property Acquisition Policies Act (Uniform Act), etc., when any phase is implemented with Federal-Aid funds.

Table 2

2.5      National Goals of the Federal-Aid Highway Program

Title 23 of the U.S.C., Section 150(b) lists a set of seven (7) national transportation goals for the federal-aid highway system:

(1)    Safety – To achieve a significant reduction in traffic fatalities and serious injuries on all public roads.

(2)    Infrastructure condition – To maintain the highway infrastructure asset system in a state of good repair.

(3)    Congestion reduction – To achieve a significant reduction in congestion on the National Highway System.

(4)    System reliability – To improve the efficiency of the surface transportation system.

(5)    Freight movement and economic vitality – To improve the National Highway Freight Network, strengthen the ability of rural communities to access national and international trade markets, and support regional economic development.

(6)    Environmental sustainability – To enhance the performance of the transportation system while protecting and enhancing the natural environment.

(7)    Reduced project delivery delays – To reduce project costs, promote jobs and the economy, and expedite the movement of people and goods by accelerating project completion through eliminating delays in the project development and delivery process, including reducing regulatory burdens and improving agencies’ work practices.

2.6      Federal Planning Factors

In addition to project selection criteria, the Johnson City MTPO also considered the ten (10) planning factors identified Title 23 of the CFR, Section 450.306 (b), which requires MPOs to focus efforts on regional strategies that:

(1)    Support the economic vitality of the metropolitan area, especially by enabling global competitiveness, productivity, and efficiency;

(2)    Increase the safety of the transportation system for motorized and non-motorized users;

(3)    Increase the security of the transportation system for motorized and non-motorized users;

(4)    Increase the accessibility and mobility of people and freight;

(5)    Protect and enhance the environment, promote energy conservation, improve the quality of life, and promote consistency between transportation improvements and State and local planned growth and economic development patterns;

(6)    Enhance the integration and connectivity of the transportation system across and between modes, for people and freight;

(7)    Promote efficient system management and operation;

(8)    Emphasize the preservation of the existing transportation system;

(9)    Improve the resiliency and reliability of the transportation system and reduce or mitigate stormwater impacts of surface transportation; and

(10) Enhance travel and tourism.

3         Public Participation

The Johnson City MTPO Public Participation Plan (PPP) provides guidelines for how the public and interested stakeholders will be involved in the development of the TIP.  Throughout the development of the MTP and the TIP, the public and interested stakeholders are given an opportunity to comment.  The full document is available on the website at https://jcmpo.org/ppp.html.     

Throughout the development of the MTP, significant public input was gathered from online surveys and public meetings.  In addition to this, the MTP was made available for thirty (30) calendar days for the public to comment.  All projects in the TIP must either be in the MTP or consistent with the MTP, thus the public has already been made aware of planned projects and has been provided with the opportunity to comment.

To build on this process, the TIP process includes additional opportunities for the public to be involved.  Following the process outlined in the PPP, the final draft TIP is available to the public for review and comment for fourteen (14) calendar days from the date of the public notice in the regional newspaper, the Johnson City Press.  The notices and document are made available on the Johnson City MTPO website and posted on social media.  All public participation documentation and comments are compiled for inclusion in Appendix A of the TIP document and presented to the Executive Board.  If there are significant comments, the Executive Board may choose to postpone the adoption of the TIP until such time these comments can be addressed.  If the TIP document changes significantly, the Executive Board may decide to request an additional review period to afford the public the opportunity to comment on the revisions.

3.1      Coordination and Consultation Process

As part of the “Consultation Process” required by Section 450.316 of the CFR, the Johnson City MTPO has established contact with federal and state agencies.  Formal coordination with these agencies will help to identify effective mitigation strategies for potential impacts of projects included in the Johnson City MTPO’s MTP and TIP.  The Johnson City MTPO public participation processes shall be coordinated with the statewide transportation public involvement process through review and communication wherever possible.  The Johnson City MTPO Interagency Consultation List is available as Appendix C in the PPP.  A checklist from the PPP for adoption of the TIP is shown as Table 3 below.

Table 3

3.2      Title VI / Environmental Justice

As with all processes and projects in the Johnson City MTPO, Title VI, Environmental Justice, and the ADA are a priority.  Title VI of the Civil Rights Act of 1964 prohibits discrimination based upon race, color, or national origin.  Specifically, Title 42 of the U.S.C., Section 2000d states, “No person in the United States shall, on the grounds of race, color, or national origin, be excluded from participation in, be denied the benefits of, or be subjected to discrimination under any program or activity receiving Federal financial assistance.”  Environmental Justice, Executive Order 12898 of 1994 states, “Each Federal agency shall make achieving environmental justice part of its mission by identifying and addressing, as appropriate, disproportionately high and adverse human health or environmental effects of its programs, policies, and activities on minority populations and low-income populations.”  In addition to the Executive Order, the US DOT issued Order 5610.2(a), which provides directive about how Environmental Justice communities are to be addressed in the planning process. 

All projects using federal highway trust funds for the Johnson City MTPO comply with Title VI and Environmental Justice.  The Johnson City MTPO has procedures for addressing Title VI complaints by making available a complaint form and an instruction document, in both English and Spanish languages, on our website at https://jcmpo.org/titlevi.html.  Staff has also published a Title VI notice in the Johnson City Press in January 2022, in both English and Spanish languages. The TIP document can also be translated into another language, upon request.

3.3      ADA and Transition Plans

As part of FHWA’s regulatory responsibility under Title II of the ADA of 1990 and Section 504 of the Rehabilitation Act of 1973, the FHWA ensures that recipients of Federal aid and State and local entities that are responsible for roadways and pedestrian facilities do not discriminate on the basis of disability in any highway transportation program activity, service, or benefit they provide to the general public; and to ensure that people with disabilities have equitable opportunities to use the public rights-of-way system. 

Table 4 below describes the status of the ADA Transition Plans that are required for cities and counties with 50 or more employees.

Table 4

3.4      Public Transportation Program of Projects

Local public transportation providers rely on their coordination with the Johnson City MTPO public participation process outlined in the PPP to ensure public awareness and outreach of the agencies’ Program of Projects (POP).  Johnson City MTPO’s public involvement activities, public notices, and public comment periods on the TIP will satisfy the POP requirement of the Urbanized Area Formula Program (Section 5307) administered by FTA.

Public notices of the TIP will state: “Public involvement activities and time established for public review and comment on the TIP will satisfy the Program of Projects requirement for the Federal Transit Administration Urbanized Area Formula Program.”

3.5      Annual Listing of Obligated Projects

At the end of each federal fiscal year, an annual listing of obligated projects, including investments in pedestrian walkways and bicycle transportation facilities, for which federal funds have been obligated in the preceding year, will be published or otherwise made available by the cooperative effort of the state, transit operator and metropolitan planning organization for public review.  The listing will be consistent with the categories identified in the TIP. The listing includes both highway (FHWA) and transit (FTA) projects.  Notice will be given through the website, under the “Projects & Info” tab, and on social media.  The listing will be distributed and discussed at the Executive Board/Staff meetings, along with the listing emailed to the distribution list. 

4         Financial Plan

4.1      Fiscal Constraint

The TIP is required to include a financial plan that demonstrates how the program of projects can be implemented.  This includes identifying eligible federal, state, and local funding sources.  Member jurisdictions of the Johnson City MTPO, TDOT and other agencies that reside in the Johnson City MTPO MPA boundary have submitted projects and indicated they have the financial resources to provide the necessary local matching funds to complete their projects.  If funding revenues change, either in the positive or negative level, the TIP will be adjusted or amended when necessary.

Detailed financial breakdowns are included in the Summary Tables in Section G of this document.   The total amount of money available in each funding category is shown, as well as the total amount of programmed expenditures and remaining funds by funding source by year.  The tables show that programmed expenditures are within the balance of expected fund allocations in accordance with the requirements of the IIJA (BIL).  Therefore, the TIP is “fiscally constrained.”

4.2      Revenue Sources

The annual allocation of Surface Transportation Block Grant Program – Local Allocation to MPO funds (STBG-L) for the Johnson City Urbanized Area is estimated at $1,820,268 for each fiscal year. The Tennessee Department of Transportation provided this estimate to the Johnson City MTPO.  STBG funds are federal funds that come from the Highway Trust Fund through fuel taxes and authorized with the transportation reauthorization Act.  In recent years, due to shortfalls, the Highway Trust Fund has been supplemented with general budget appropriations.  The current act, the IIJA (BIL), expires on September 30, 2026.   STBG-L funds are allocated by TDOT to the small MPOs and is the primary funding source for non-transit transportation projects funded by the Johnson City MTPO.  Local matching funds for projects are provided by jurisdictions through their own revenue sources, primarily through property and sales taxes.  In developing the TIP, the Johnson City MTPO used the annual allocation to program projects, covering multiple years in the TIP, to ensure they do not exceed projections; however, the annual allocation can vary from year to year, depending upon revenue from the highway trust fund, changes to the gas tax, congressional rescissions, new transportation authorization legislation or other external influences.  If this occurs, the Johnson City MTPO will adjust the TIP accordingly.

The Johnson City MTPO works closely with public transportation providers in forecasting transit revenue to include in the TIP, taking into consideration historic funding from the Governor’s allocation of Section 5307 funds and discretionary grant funding in other programs, such as Section 5310 and 5339. 

4.3      Cost Estimation

Each project listed in this TIP has a cost estimate assigned to it.  These cost estimates were derived through consultation with local jurisdictions, consultants, the Johnson City MTPO staff, public transportation providers, and TDOT, as was done in developing the MTP.  The Johnson City MTPO staff also uses a conceptual planning cost estimation tool provided by TDOT.  The Johnson City MTPO used Year of Expenditure (YOE) to calculate future costs.  Johnson City MTPO funding requirements are compiled from available data for future expected capital, operating, and maintenance expenditures for highways, transit, and bike/pedestrian transportation modes, as well as from historical expenditures, which have been projected with a 5% inflation rate.  This rate was determined in consultation with TDOT Programming Division.  The TIP is required to be fiscally constrained.

4.4      Ongoing Maintenance and Operations Cost

The Johnson City MTPO and its member jurisdictions must assure the maintenance and efficient operation of existing transportation infrastructure.  Maintenance activities are those that occur primarily in reaction to situations that have an immediate or imminent adverse impact on the safety or availability of transportation facilities, such as pavement resurfacing and markings, street lighting, sidewalk repair, sinkhole repair, bridge repair, guardrail and sign replacement, and traffic signal maintenance.  Operations may include more routine items such as painting and right-of-way maintenance.  While these annual activities are not funded through or scheduled in the TIP, they are included in Table 5 on the next page to demonstrate that jurisdictions and agencies have the resources to operate and maintain the new or improved facilities, equipment, and services programmed in the TIP.  These numbers are based on uncertain economic growth.  Actual numbers may change.  For future years, a conservative estimate of a one (1) percent increase in the budget was used and is shown in the Financial Summary of Highway Funds on page 81. In the event Federal transportation funds were made available for maintenance and operations projects, it would be identified in the TIP.

Table 5

*These figures include county-wide costs; the Washington County Highway Department operates its own asphalt plant for the county.

For public transportation providers, funds are spent on daily operations activities and maintenance of vehicles and equipment, which are principal components in sustaining a safe and efficient public transportation infrastructure.  Table 6 on the next page provides estimated annual operations and maintenance costs for the public transportation providers.

Table 6

4.5      Funding Programs

Over the years, new transportation authorizations have eliminated, consolidated, or created transportation funding programs.  The newest transportation authorization, the IIJA (BIL), is a five-year authorization enacted on November 15, 2021. The previous bill, the FAST Act, expired September 30, 2020 and was extended several times until December 2021.  Table 7 on the next page summarizes the major funding categories available for transportation projects in the TIP, including a brief description of the types of eligible activities, along with the funding ratio.  Please note that although funding sources discussed in Table 7 may not be in the current TIP, this information is provided to educate stakeholders on the funding that is available and the changes that occurred when the IIJA (BIL) was signed into law.  Many stakeholders may be unaware of these changes and still expect a specific program to be available when it was actually changed, eliminated, or consolidated into another program.  Also, the funding ratio may be different for specific safety improvement projects (listed in 23 U.S.C. 120(c)(1)), with up to 100% funded by Federal dollars.  The tables are broken out by Federal Highway Administration programs, Federal Transit Administration programs, and discretionary (competitive) grant programs available from each entity.  Please note that there are other funding programs available in the IIJA (BIL) for transportation projects and activities; however, these programs were not reasonably expected to fund any of the projects in this TIP.

Table 7

TIP Amendment and Modification Procedures

The TIP may be modified at any time through two processes.  One is the amendment process and the other is the administrative modification process.  A Memorandum of Agreement (MOA) between the Johnson City MTPO and TDOT has been agreed upon which outlines these processes and requirements.  Extracts from this MOA are outlined in the sections below.  A complete copy of the MOA is provided in Appendix B of this document.

4.6      Project Thresholds

The MOA between the Johnson City MTPO and TDOT identifies the project cost change thresholds that require either an amendment or an administrative modification.  Table 8 below shows the project cost change thresholds, a sliding scale of the total programmed funds of all phases of a project that is shown within the approved TIP and how much of a percentage of that change triggers the amendment process or the administrative modification process.  This applies to FTA projects as well as FHWA projects.  For example, if the total programmed funds are $1 million, and additional funds of $500,000 are being added, the percent cost change is 50 percent, which would require the administrative modification process.  If the total project cost is $ 1 million, and additional funds of $800,000 are being added, the percent cost change is 80 percent, which would require the amendment process.

Table 8

4.7      Amendments

An amendment is a revision to the STIP/TIP that involves major changes to a project or the overall program and must meet the requirements of 23 CFR §450.216 and §450.326 regarding public review and comment, re-demonstration of fiscal constraint, and transportation conformity. An amendment requires TDOT and FHWA/FTA approval. An amendment is required when changes to the STIP/TIP include:

• A major change in the total project cost (excluding groupings) (see discussion on project cost change thresholds above); or
• Adding a new project or deleting a project from the STIP/TIP; or
• A major change of project scope; examples include, but are not limited to, changing the number of through-lanes, adding/deleting non-motorized facilities, changing mode (e.g., rolling stock or facility type for transit), changing capital category (i.e., transit funding), or changing termini; or
• Any change requiring a new regional air quality conformity finding (including a grouping); or
• Moving funds between an MPO TIP and STIP unless a written agreement exists between the MPO and TDOT that such an action may be a processed as an administrative modification; or
• Moving funds between an MPO’s TIP and another MPO’s TIP unless a written agreement exists between each MPO and TDOT that such an action may be processed as an administrative modification.

4.8      Administrative Modifications

An administrative modification is a minor change from the approved STIP/TIP. Administrative modifications must be consistent with 23 CFR Part 450, but they do not require public review and comment, or a conformity determination in non-attainment or maintenance areas. STIP/TIP administrative modifications are defined as follows:

• A minor change in the total project cost (see project cost change thresholds);
• A minor change in project description that does not change the air quality conformity finding in maintenance and/or non-attainment areas; or
• A minor change in project description/termini that is for clarification and does not change the project scope such as a length change for reasonable transition purposes; or
• Shifting funds between projects within the STIP/TIP (i.e., funding sources and projects already identified in the STIP/TIP) if the change does not result in a cost increase greater than the amendment threshold (see project cost change thresholds listed above) for the total project cost of all phases shown within the approved STIP/TIP; or
• Adding an amount of funds already identified in the STIP/TIP for the current or previous year(s) if:

o   The funds are currently identified in the STIP/TIP either in an existing project or as available funds; and

o   The change does not result in a cost increase greater than the amendment threshold (project cost change thresholds listed above) for the total project cost of all phases shown within the approved STIP/TIP; or

• Moving project phases or funding from year to year within an approved STIP/TIP, except those that cross air quality horizon years; or
• Adding any phase (if total project cost includes all phases), such as environmental or location study, preliminary engineering, right-of-way, or construction to a project in the STIP/TIP so long as such a change does not result in a cost increase greater than the amendment threshold (see project cost change thresholds) for the total project cost of all phases shown within the approved/amended STIP/TIP; or
• Changes required to follow FHWA or FTA instructions as to the withdrawal of funds or re-establishment of funds withdrawn at the request of FHWA or FTA; or
• Moving funds between similarly labeled groupings, regardless of percent of change; or
• Adjustments in revenue to match actual revenue receipts; or
• Adding a project with 100% state or non-federal funding for all phases that does not change the air quality conformity finding in maintenance and/or non-attainment areas.

5         Status of Projects in FYs 2020-2023 TIP

On November 16, 2021, the Johnson City MTPO held a TIP workshop for the Executive Staff to disucss the status of the MTPO’s STBG balance and the need for new projects to program into the TIP.  It was also announced at the Executive Board meeting on December 8, 2021, that a new TIP would be developed and issued a call for projects.  An email was also sent to all members and the public about a call for projects in November 2021. With these notifications, it was found there was a back log of projects that would be required to be carried over into the new TIP.  Staff met individually with each jurisdiction to review current projects and their status, available funding, and capacity for matching local funds for projects.   Tables 9 and 10 on the next few pages provide a summary of the status update of the projects.  Please note that reoccurring groupings, listed below, are on-going projects with no particular status:

• Surface Transportation Block Grant Program Grouping (2090565, STBG-State funds) (this grouping has a new name in this TIP called Surface Transportation System Preservation and Operation Urban Grouping);
• National Highway Performance Program Grouping (2090560, NHPP funds) (this grouping has a new name in this TIP called National Highway System Preservation and Operation Urban Grouping);
• Highway Safety Improvement Program Grouping (2090595, HSIP/PHSIP funds) (this grouping has a new name in this TIP called Safety – Urban Grouping); and
• Transportation Alternatives Program Grouping (2020-09, TAP funds).

Table 9

Status of Projects in FYs 2020-2023 TIP

Table 10

Status of FTA Transit Projects

6         Projects to Carryover from FYs 2020-2023 TIP to FYs 2023-2026 TIP

After the status of a project was assessed, the determination was made whether to carryover the project to the new TIP.  The Executive Staff (technical committee) considered a project’s current status, available funding, and capacity for matching local funds for projects before making the decision to rank the projects and carry them over to the FYs 2023-2026 TIP.  Table 11 below lists the carryover projects.

Table 11

Projects to Carryover

7         Illustrative Projects

Table 12 on the next page provides a listing of illustrative projects, some of which are un-funded transportation improvement projects within the Johnson City MPA area.  These projects are not financially affordable, given the current assumptions on availability of future transportation funds over the four-year TIP period.  As funding becomes available, these projects will need to be amended into the financially constrained portion of the FY 2023-2026 TIP in order to be funded. 

The first project is the Knob Creek Road project, from Mizpah Hills Drive to Marketplace Blvd. Johnson City is currently finishing up the PE and ROW phases of this project before they will hand it off to TDOT staff to manage construction. Once that happens and TDOT programs the funding for construction, this project will be amended into the TIP.

The second project is the Jonesborough Parkway project.  The MTPO staff submitted a request to TDOT in 2018 for a needs assessment planning study on this proposed new corridor in Jonesborough.   This project has been included in the last three long-range metropolitan transportation plans.   As of now, this project has not been advanced for a study.  It remains a high priority to address increased traffic congestion for the Jonesborough area on US 11E / State Route 34 and provide better access to I-26 and north Johnson City.

Table 12

Illustrative Projects

8         Performance Measures and Targets

8.1      What is Performance-Based Planning and Programming?

This section of the TIP outlines performance measures (PM) and targets as part of the performance-based approach to planning and programming activities that were first established by MAP-21 in 2012, then continued by the FAST Act, and also continued by the IIJA (BIL).  Performance-based planning requirements will ensure that the selection of transportation and transit projects show progress toward meeting national goals established to improve the overall transportation and transit system.  The Johnson City MTPO has partnered with TDOT and the two local transit providers, Johnson City Transit System (JCT) and Northeast Tennessee Rural Public Transportation (NET Trans), by signing a Memorandum of Understanding to establish a cooperative process to develop, share and report information related to performance measures and performance targets that will show progress toward national goals, which are explained in more detail in this section. Figure 3 below, provided by FHWA in the Performance-Based Planning and Programming Guidebook, is a guide for how the performance-based planning process affects programming of projects into the TIP. 

Figure 3

8.2      Transportation National Goals with Performance Measures and Targets

Section 2.5 on page 14 of this TIP document defines the seven (7) national goals that were established to address safety, infrastructure, traffic congestion, efficiency, environment, transportation delays, and project delivery delays.  Table 13 below and 14 on the next few pages outlines each national goal, the performance measures that have been established by FHWA to make progress toward meeting those goals, along with their corresponding performance targets, and their status of establishment by TDOT and the Johnson City MTPO.  

Table 13 (PM1)

Table 14 (PM2 and PM3)

8.3      Transit National Goals with Performance Measures and Targets

FTA has also established performance measures and targets for the public transportation providers for a strategic and systematic process of operating, maintaining, and improving public capital assets effectively through their entire life cycle, along with requirements for safety management systems.  The regional targets for Transit Asset Management are shown in Table 15 on the next page.  The transit safety targets are shown in Table 16 on page 44.

Table 15

Table 16

*VRM – Vehicle Revenue Miles

8.4      Linking Performance Measures and Targets to Project Selection from the MTP to the TIP

Section 2.2 on page 12 of this TIP document describes the process and the criteria that are used to select projects to include in the TIP.  There are both new projects and projects that are carried over from previous TIPs.  Projects were scored and prioritized. The project selection criteria were updated to reflect the criteria in the new MTP.  TIP projects can be shown to support performance targets.  Table 17 on the next page shows the linkage of project selection criteria to the performance targets.

Table 17

The projects in the TIP were requested in the past by local jurisdictions based on their needs and concern for safety and improved transportation performance.  These requests included traffic signals, bridge repair, and congestion relief through widening or alternate routings.  The anticipated effect of these projects in the TIP toward achieving the performance targets set by TDOT and supported by the Johnson City MTPO mentioned in this section can be expected to positively contribute to the overall progress of meeting the state’s targets, albeit a small impact. 

The Johnson City MTPO reviewed all the projects in the TIP for inclusion and compliance with the MTPO’s adopted MTP, which includes the National Goals for Performance-Based Planning.  The Johnson City 2045 MTP was adopted on February 22, 2018, before the Performance Measures became effective on May 27, 2018.  As such, the linkage of the TIP to the National Goals for Performance-Based Planning and Programming and the incorporation of the performance measures will occur in the next cycle of the MTP update, which is scheduled to be adopted in February 2023.

Table 18 on the next page demonstrates the linkage between the goals and objectives within the MTP to the federal planning factors and national goals in the IIJA (BIL).  As you can see, the four MTP goals and corresponding objectives support achievement of each of the seven (7) national goals and each of the ten (10) federal planning factors. 

Table 18

Figure 4 on the next page demonstrates the linkage of other state and MTPO performance-based plans that provide information for the planning of investment priorities and programming of projects into the TIP. This diagram was based on a model provided in the FHWA Transportation Performance Management Toolbox, which was adapted from the Minnesota Department of Transportation’s Family of Plans. 

Figure 4

Linkage of Investment Priorities to Programming Process

9         Individual Project Sheets for the FYs 2023 – 2026 TIP

The following sections constitute the program of projects to be included in the FYs 2023-2026 TIP.      Figure 5 on the next page demonstrates how to read the TIP project pages.

Figure 5:  How to Read a TIP Project Page

Section A:  Surface Transportation Block Grant Program – Local Allocation to MPO Projects (STBG-L)

2017-16     Traffic Signal for SR 34 (US 11E/E Jackson Blvd) & Tiger Way

2022-01     Downtown Johnson City Crosswalk Safety Project

2022-02     Johnson City Traffic Signal Grouping

2023-10     Linear Path and Tweetsie Trail Connector

2023-11     Roundabout at Overmountain Drive

2023-12     Overmountain Drive Extension

2023-13     Traffic Management Center

2023-16     Christian Church Road Improvements

2023-17     Old Gray Station Road Section 2 at SR 75 Traffic Signal

2023-18     ITS Fiber Optic Expansion

Section B: Surface Transportation Block Grant Program –  State Projects (STBG-S)

2090015     Knob Creek Road – Section 2 (06040)

2090565     Surface Transportation System Preservation and Operation Urban Grouping

Section C: Highway Safety Improvement Program (HSIP)

2090595     Safety – Urban Grouping

Section D: National Highway Performance Program (NHPP)

2090560     National Highway System Preservation and Operation Urban Grouping

Section E: Transit Projects (FTA)

2023-01     JCT Transit Operating – Sec. 5307

2023-02     JCT Capital – Sec. 5307

2023-03     JCT Transit Capital – Sec. 5310

2023-04     JCT Transit Capital – Sections 5307 & 5339

2023-05     JCT Operating – Sec. 5317 (New Freedom)

2020-06     JCT Transit Operating – Sec. 5316 (Job Access)

2023-07     NET Trans Operating Expenses

2023-08     NET Trans Capital Purchases (Revenue Vehicles)

2023-09     NET Trans Mobility Management

2023-14     Enhanced Mobility of Seniors and Individuals with Disabilities Program Grouping

Section F:  Transportation Alternatives

2023-19     Historic Covered Bridge Structural Rehabilitation

2023-15     Transportation Alternatives Program Grouping

Section G: Financial Summary Tables

Financial Summary of Highway Funds

Financial Summary of STBG-L Funds (Local Allocation to MPO)

Financial Summary of Transit Funds

Appendix A:  Public Participation Documentation

Appendix B: Memorandum of Agreement

Please note, the Memorandum of Agreement is currently being drafted and reviewed by TDOT and FHWA. Once the agreement has been finalized, it will be provided to the MPOs for signature and inclusion in the final TIP document.

MEMORANDUM OF AGREEMENT BETWEEN

THE TENNESSEE DEPARTMENT OF TRANSPORTATION

AND

THE JOHNSON CITY METROPOLITAN TRANSPORTATION PLANNING ORGANIZATION

REGARDING THE DEFINITION AND NEED FOR AMENDMENTS I ADMINISTRATIVE MODIFICATIONS TO THE STATEWIDE TRANSPORTATION IMPROVEMENT PROGRAM I TRANSPORTATION IMPROVEMENT PROGRAMS IN THE STATE OF TENNESSEE

INTRODUCTION:

The purpose of this Memorandum of Agreement is to establish two categories of actions to meet Federal requirements and streamline the maintenance of the Statewide Transportation Improvement Program/Transportation Improvement Program (STIP/TIP).  One category of action is a “STIP/TIP Amendment” and the other is a “STIP/TIP Administrative Modification.”

DEFINING THE STIP/TIP:

As detailed in Title 23 Code of Federal Regulations (CFR) Part 450, the STIP is defined in Federal regulations as “a statewide prioritized listing/program of transportation projects covering a period of 4 years that is consistent with the long-range statewide transportation plan, metropolitan transportation plans, and TIPs, and required for projects to be eligible for funding under title 23 U.S.C. and title 49 U.S.C. Chapter 53.” All projects and groupings in the STIP and TIPs must list the eligible funding source(s) (e.g., FTA Section program, Surface Transportation Block Grant, etc.). Approval authority over the STIP and all STIP amendments lies with FHWA and FTA.

Per 23 CFR 450.218, the State of Tennessee STIP shall include each metropolitan TIP for each MPO in Tennessee, as approved by the associated MPO and TDOT (as delegated authority from the Governor of the State of Tennessee). Per Federal regulations, TDOT can elect to include the metropolitan TIPs in the STIP directly or by reference, with specific expectations for each option:

• Direct inclusion of the metropolitan TIP – in this situation, TDOT’s STIP, as published and approved by FHWA and FTA, will include all projects listed in the approved metropolitan TIP, regardless of project sponsor or funding source. Accordingly, FHWA and FTA will match authorization requests for all projects across the State of Tennessee to the latest approved/amended STIP.
• Inclusion of the metropolitan TIP by reference – in this situation, TDOT’s STIP, as published and approved by FHWA and FTA, will make narrative reference to the metropolitan TIPs, as approved by the MPO and TDOT. Accordingly, FHWA and FTA will match all authorization requests for projects in metropolitan areas to the latest approved/amended metropolitan TIP, and all authorization requests for projects in non-metropolitan areas will be matched to the latest approved/amended STIP.

More information on the amendment/administrative modification processes and authorization requests is available below.

STIP/TIP AMENDMENT:

An amendment is a revision to the STIP/TIP that involves major changes to a project or the overall program and must meet the requirements of 23 CFR §450.216 and §450.326 regarding public review and comment, re-demonstration of fiscal constraint, and transportation conformity. An amendment is required when changes to the STIP/TIP include:

• A major change in the total project cost (excluding groupings) (see discussion on project cost change thresholds with Table A); or

• Adding a new project or deleting a project from the STIP/TIP; or

• A major change of project scope; examples include, but are not limited to, changing the number of through-lanes, adding/deleting non-motorized facilities (i.e. greenways, sidewalks, bike lanes, transfer stations, etc.), changing mode (e.g., rolling stock or facility type for transit, such as light rail cars instead of trolleys, vans instead of buses, etc. ), changing capital category (i.e., transit funding added to a CMAQ funded project or CMAQ funding substituted for transit funding), or changing termini; or

• Any change requiring a new regional air quality conformity finding (including a grouping); or

• Moving funds between a Metropolitan Planning Organization (MPO) TIP and STIP unless a written agreement exists between the MPO and the Tennessee Department of Transportation (TDOT) that such an action may be a processed as an administrative modification; or
• Moving funds between an MPO’s TIP and another MPO’s TIP unless a written agreement exists between each MPO and TDOT that such an action may be processed as an administrative modification.

AMENDMENT DOCUMENT AND APPROVAL PROCEDURES:

The STIP/TIP may be amended at any time, but amendments require Federal approval and redetermination of STIP/TIP fiscal constraint and air quality conformity, where applicable. TDOT will review each TIP amendment, approve its inclusion in the STIP, and submit the amendment to the appropriate Federal Agency.  The Federal Agencies will independently review and respond to a formal written request for amendment approval from TDOT within 10 business days of receipt.

Documentation:

The MPO will send the following documentation to TDOT:

• Electronic correspondence describing the action taken and requesting review and approval of the proposed amendment;

• A copy of the original and amended TIP pages;
• Documentation supporting:

o      Fiscal constraint,

o      Interested parties’ participation (i.e., public involvement, stakeholder involvement,

and consultation),

o      Air quality conformity (in non-attainment and/or maintenance areas only), and

o      Required MPO certifications, including the MPO Self-Certification with a current date; and

o      The resolution adopting the amendment.

For financial transactions, the MPO must identify in the documentation the origin and destination of the funds being moved.

Regardless of whether the metropolitan TIP is included directly or by reference into the STIP, both the MPO and TDOT (through authority delegated by the Governor of Tennessee) must approve any TIP amendment including State managed projects before transmittal to FHWA/FTA for inclusion in the STIP. FHWA and FTA still retain authority over the inclusion of any amendments into the STIP, whether the TIP is included directly or by reference. In both cases, TDOT shall send the above-described documentation to FHWA/FTA for review and approval of the TIP amendment, along with a current Self-Certification for the STIP.

When FHWA or FTA approves an amendment, the appropriate approving agency will send to TDOT and the MPO:

• The original amendment review request,
• The original supporting amendment documentation, and
• Letter documenting FHWA’s or FTA’s approval.
• For transit projects, the Multimodal office should work with the Program Development and Scheduling office to ensure that any amendments are included in the updated STIP. 

Amendment documentation will conform to the correspondence standards outlined in Appendix A.

STIP/TIP ADMINISTRATIVE MODIFICATIONS:

A STIP/TIP administrative modification is a minor change from the approved STIP/TIP. Administrative modifications must be consistent with 23 CFR Part 450, but they do not require public review and comment, or a conformity determination in non-attainment or maintenance areas. STIP/TIP administrative modifications are defined as follows:

• A minor change in the total project cost (see Table A)

• A minor change in project description that does not change the air quality conformity

finding in maintenance and/or non-attainment areas; or

• A minor change in project description/termini that is for clarification and does not change

the project scope such as a length change for reasonable transition purposes or to correct minor clerical errors or discrepancies; or

• Shifting funds between projects or groupings within the STIP/TIP (i.e., funding sources and projects already identified in the STIP/TIP) if the change does not result in a cost increase greater than the amendment threshold (see Table A) for the total project cost of all phases shown within the approved STIP/TIP; or

• Adding an amount of funds already identified in the STIP/TIP for the current or previous

year(s) if:

o      The funds are currently identified in the STIP/TIP either in an existing project or as available funds and

o      The change does not result in a cost increase greater than the amendment threshold (project cost change thresholds listed in Table A) for the total project cost of all phases shown within the approved STIP/TIP; or

• Moving project phases or funding from year to year within an approved STIP/TIP, except those that cross air quality horizon years of the project; or

• Adding any phase (if total project cost includes all phases), such as environmental or location study, preliminary engineering, right-of-way, or construction to a project in the STIP/TIP so long as such a change does not result in a cost increase greater than the amendment threshold (see Table A) for the total project cost of all phases shown within the approved/amended STIP/TIP; or

• Changes required to follow FHWA or FTA instructions as to the withdrawal of funds or

re-establishment of funds withdrawn at the request of FHWA or FTA; or

• Moving funds between similarly labeled groupings, regardless of percent of change, or adding or removing a project(s) to or from an already established grouping; or

• Adjustments in revenue to match actual revenue receipts; or

• Adding a project with 100% state or non-federal funding for all phases that does not change the air quality conformity finding in maintenance and/or non-attainment areas; or

• Adding or changing a funding source, as long as the change does not result in a cost increase greater than the amendment threshold (see Table A);

ADMINISTRATIVE MODIFICATION DOCUMENT PROCEDURES:

Administrative modifications do not require Federal approval. Accordingly, no interested parties’ participation or air quality conformity is required. TDOT and the MPOs will work cooperatively to address and respond to any FHWA and/or FTA comment(s). FHWA and FTA reserve the right to question any administrative action that is not consistent with Federal regulations or with this MOA.  Administrative modifications made to TDOT-sponsored projects in the TIP will be requested by TDOT through notification to the MPO upon submission of the administrative modification to FHWA/FTA.  The MPO will make the changes to funding tables, and project sheets as needed without the need for distribution.

Documentation:

The MPO will send the following documentation to TDOT for locally-sponsored projects:

• Electronic correspondence describing the action taken;

• A copy of the original and modified TIP pages.

For financial transactions, the MPO must identify in the documentation the origin and destination of the funds being moved. Administrative modification documentation will conform to the correspondence standards outlined in Appendix A.

AUTHORIZATION:

FHWA and FTA match project authorization requests to the STIP/TIP prior to approving a request for project authorization. Therefore, all administrative modifications and amendments must be processed to completion prior to TDOT requesting federal authorization approvals. For projects in MPO areas TDOT must ensure FHWA and FTA receipt of documented notification that the respective MPO has accounted for the administrative modification unless TDOT has a formal agreement with the respective MPO stating otherwise.

In the FMIS authorization request, TDOT shall provide the most recent amendment and administrative modification numbers affecting the project in the “STIP Reference” field or in the “State Remarks” if additional space is required.

PROJECT COST CHANGE THRESHOLDS:

For changes to the cost of projects (excluding groupings and reductions of any amount provided project length, termini, and description remain the same), a sliding scale (see Table A) is outlined to determine which category of revision is required. All measurements for these cost changes will be made from the last approved STIP or STIP amendment/administrative modification to account for incremental changes.

TABLE A

PROJECT PHASE OVERRUNS AND UNDERRUNS:

Project overruns and underruns for previously authorized phases of projects in a previous TIP will not be programmed in the current TIP. If the phase of the project is in the current TIP then the rules of this document will apply; however, if the phase of the project was authorized in a previous TIP no action will be necessary within the current TIP. If a project programmed in a grouping incurs an overrun or underrun from a previously authorized phase, no TIP action will be needed. Any request for authorization of a new phase will need to follow the rules within this document.

• If a project is being closed out but incurs an overrun, it will not require an amendment or administrative modification.

   

PROJECT GROUPINGS:

The use of project groupings is permitted under 23 CFR §450.218(j) for projects located in the non-metropolitan portion of the STIP and 23 CFR §450.326(h) for projects in an MPO’s TIP. Projects that are funded by such groupings are to be of a scale small enough not to warrant individual identification and may be grouped by function, work type, and/or geographic area using the applicable classifications under 23 CFR §771.117(c) and (d) and/or 40 CFR part 93. Project groupings may only include projects that meet the following conditions: non-regionally significant, environmentally neutral, and exempt from air quality conformity. As appropriate, in instances where it is uncertain if specific project(s) meet those conditions in air quality nonattainment or maintenance areas, the sponsoring agency, in coordination with the MPO, must consult with the appropriate Interagency Consultation group (IAC) to determine whether the specific project(s) proposed to be included with the grouping are subject to the requirements of 40 CFR 93.

The STIP/TIP will include a description of all grouping categories, eligible activities, and sufficient financial information to demonstrate the projects that are to be implemented using current and/or reasonably available revenues. The MPO will develop the grouping categories and eligible activities included within the STIP/TIP in consultation with TDOT. All TDOT-sponsored projects located within an MPO area must be included in the MPO’s TIP, including those projects that are eligible for grouping. Therefore, projects eligible for groupings that are located within the MPO planning area may be grouped within the MPO’s TIP or listed individually in the MPO’s TIP, but may not be included in the STIP.

PROJECTS IN RURAL/URBAN AREAS AND PROJECTS IN TWO (2) OR MORE MPOs

All projects that cross the MPO boundary and include an area outside of the MPO boundary will be programmed in the TIP only.

In instances where a project is in two (2) or more MPO planning areas, the affected MPOs will consult and coordinate as to which MPO is most impacted by the project, taking into consideration project limits, air quality conformity requirements, regional significance, etc.  The MPO most impacted will program the project in its TIP and include it in the demonstration of fiscal constraint.  The other MPO(s) will reference the project in its TIP for informational purposes. In instances where the MPOs are unable to reach an agreement, TDOT will facilitate a consultation process with the affected MPOs, TDOT, and FHWA/FTA.

CONSULTATION PROCESS:

The MPO will consult with TDOT and the appropriate approving agency (i.e., FTA for transit projects and FHWA for highway projects) on the suitable category of action when the proposed change to the STIP/TIP does not clearly fall into the category of a “STIP/TIP Amendment” or a “STIP/TIP Administrative Modification” or the proposed change involves extenuating circumstances. Consultations will suspend the formal 10 business day review period for “STIP/TIP Amendments” until a resolution is established. The MPO also will consult with the appropriate approving agency prior to adding new non-formula or specialized federal funds (such as BUILD program funds) to a project to determine if the addition of the funds would warrant an amendment.

PROCESS REVIEW:

The MPO and TDOT will review this agreement in conjunction with each Statewide Planning Finding or when STIP/TIP management procedures are substantively changed (e.g., implementation of an electronic STIP/TIP). The focus of the review is to verify the appropriate use of the agreed-to amendment and administrative modification processes and consistency with Federal regulations.

We, the undersigned, approve this Memorandum of Agreement. This Agreement will become effective upon approval of signature by all parties, and will remain in effect as long as each agency agrees to and abides by the conditions set forth in this document. This Agreement may be amended at any time, but revisions will require signature by all parties. Any signatory to this Agreement may propose amendment to the agreement at any time.

All prior agreements and correspondence related to the definition and need for amendments or administrative modifications to STIP/TIPs are voided with the execution of this agreement.

SIGNATURES:

_______________________________________________               ______________________
Randy Trivette, Chair                                                                                            Date
Johnson City MTPO Executive Board

_______________________________________________               ______________________
Butch Eley, Commissioner                                                                                              Date
Tennessee Department of Transportation

APPENDIX A: CORRESPONDENCE STANDARDS

All amendment and administrative modification correspondence will be submitted to TDOT’s Program Development and Scheduling Office.  The MPO will submit the correspondence and documentation to STIP.Requests@tn.gov and the Program Monitor in the Program Development and Scheduling Office responsible for the TDOT Region in which the MPO is located.

Amendment Documentation:

Amendment documentation will be grouped in a single electronic document with the naming convention, “Amendment [X] ([Project#])”, where [X] identifies the amendment’s sequential identifier and [Project #] represents the unique project number(s) of the program element(s) being amended.

Email correspondence will use the naming convention, “Amendment [X], [Organization]” in the subject line where [X] identifies the amendment’s sequential identifier and [Organization] represents name of the organization (MPO) submitting the amendment. The body of the email or cover letter/project description within the packet will include all applicable information as needed such as: amendment number, PIN, STIP/TIP ID, project sponsor, location of project, route, termini, project description, funding type (e.g., STBG, 5310), length, and description of amendment. Correspondence will include ccs to the appropriate representatives within TDOT’s Long Range Planning Division and/or Multimodal Resources Division.

Modification Documentation:

Modification documentation will be grouped in a single electronic file and use the naming convention, “Modification [X] ([Project#])”, where [X] identifies the administrative modification’s sequential identifier and [Project #] represents the unique project number(s) of the program element(s) being modified.

Email correspondence will use the naming convention, “Modification [X], [Organization]” in the subject line where [X] identifies the administrative modification’s sequential identifier and [Organization] represents name of the organization (MPO) submitting the administrative modification. The body of the email or cover letter/project description within the packet will include all applicable information as needed such as: modification number, PIN, STIP/TIP ID, project sponsor, location of project, route, termini, project description, funding type (e.g., STBG, 5310), length, and description of amendment. Correspondence will include ccs to the appropriate representatives within TDOT’s Long Range Planning Division and/or Multimodal Resources Division.

Appendix C:  Statewide Grouping Descriptions

Activities delivered from TDOT’s statewide groupings are limited to work types that are:

1)                  Located in non-metropolitan or rural areas – any located in a metropolitan area must be

programmed in the MPO’s TIP,

2)                  Not considered to be of appropriate scale for individual identification in a given program year,

3)                  Environmentally neutral as categorical exclusions under 23 CFR 771.117(c) and (d),

4)                  Non-regionally significant, in non-attainment and maintenance areas, and

5)                  Exempt as defined in the EPA’s transportation conformity regulations in 40 CFR Part 93, in non- attainment and maintenance areas.

Activities that do not meet these requirements must be individually identified in the STIP or respective MPO’s

TIP. The following tables elaborate on the allowable work types for the statewide groupings.

Statewide Grouping Crosswalk

Appendix D: Highway Funding Program Descriptions

Highway Funding Program Descriptions

Federal Highway Administration Funds are allocated to the state in numerous categories. The major funding categories are described below:

Bridge Replacement and Rehabilitation (BRR) This program provides funding for bridge replacement, or to rehabilitate aging or substandard bridges based on bridge sufficiency ratings. This funding program was eliminated under MAP-21. The FAST Act continues that precedent with the elimination of a standalone funding category for BRR. All projects previously authorized under the BRR Program and carry-over funds will still be administered under previous rules and regulations of the BRR Program.

Congestion Mitigation and Air Quality (CMAQ) The CMAQ program provides a flexible funding source to State and local governments for transportation projects and programs to help meet the requirements of the Clean Air Act. Funding is available to reduce congestion and improve air quality for areas that do not meet the National Ambient Air Quality Standards for ozone, carbon monoxide, or particulate matter (non-attainment areas) and for former non-attainment areas that are now in compliance (maintenance areas).

Funds may be used for transportation projects likely to contribute to the attainment or maintenance of a national ambient air quality standard, have a high level of effectiveness in reducing air pollution, and be included in the MPO’s current transportation plan and TIP or the current STIP in areas without an MPO. Currently, all non-attainment and maintenance areas in the state are located within an MPO area, meaning that air quality conformity must be demonstrated in the MPO long-range transportation plans.

Some specific eligible activities are described below:

• Establishment or operation of a traffic monitoring, management, and control facility, including advanced truck stop electrification systems, if  it contributes to attainment of an air quality standard.
• Projects that improve traffic flow, including projects to improve signalization, construct HOV lanes, improve intersections, add turning lanes, improve transportation systems management and operations that mitigate congestion and improve air quality, and implement ITS solutions and other CMAQ‐eligible projects, including projects to improve incident and emergency response or improve mobility, such as real‐time traffic, transit, and multimodal traveler information.
• Purchase of integrated, interoperable emergency communications equipment.
• Projects that shift traffic demand to non‐peak hours or other transportation modes, increase vehicle occupancy rates, or otherwise reduce demand.
• Purchase of diesel retrofits or conducts of related outreach activities.
• Facilities  serving  electric  or  natural  gas‐fueled  vehicles  (except  where  this  conflicts  with prohibition  on  rest  area  commercialization)  are  explicitly eligible.
• Some expanded authority to use funds for transit operations.
• Workforce development, training, and education activities are also an eligible use of CMAQ funds.

The time period for use of CMAQ funds is limited, specifically with the funds used for the operation of services and facilities. Previously, the operating assistance funds were allowable for use over a period of three years; however, those funds may now be used over the course of a five-year period in an effort to allow for an incremental reduction in assistance.

Demonstration Set Aside of the STP (DEMO) This program provides special funding for certain projects.

Enhancement Activity Set Aside of the STP (ENH) This program provides funding for pedestrian and bicycle facilities; pedestrian and bicycle safety and educational activities; acquisition of scenic easements and scenic or historic sites; scenic or historic highway programs; landscaping and other scenic beautification activities; historic preservation; rehabilitation of historic transportation buildings, structures, or facilities; preservation of abandoned railway corridors; control and removal of outdoor advertising; archaeological planning and research; environmental mitigation to address water pollution due to highway runoff or reduce vehicle-caused wildlife mortality while maintaining habitat connectivity; establishment of transportation museums. Under the Tennessee Roadscapes grant program, types of work will include landscaping, irrigation, benches, trash cans, paths, and signage. This funding program was eliminated under MAP-21. All projects previously authorized under the ENH Program and carry-over funds will still be administered under previous rules and regulations of the ENH Program.

Federal Lands Access Program (FLAP) This program provides funds for projects on Federal Lands Access Transportation Facilities that are located on, adjacent to, or that provide access to Federal lands.

A Federal Lands access transportation facility is defined as a public highway, road, bridge, trail, or transit system that is located on, adjacent to, or provides access to Federal lands for which title or maintenance responsibility is vested in a State, county, town, township, tribal, municipal, or local government. Funds are distributed by formula among States that have Federal Lands managed by the National Park Service, the U.S. Forest Service, the U.S. Fish and Wildlife Service, the Bureau of Land Management, and the U.S. Army Corps of Engineers. The Eastern Federal Lands Highway Division is responsible for administering the FLAP and serving the transportation engineering needs of these Federal Land Management agencies in Tennessee. Eligible Activities include but are not limited to: Transportation planning, research, engineering, preventive maintenance, rehabilitation, restoration, construction, and reconstruction of Federal Lands located on or adjacent to, or that: provide access to a Federal land (adjacent vehicular parking areas; acquisition of necessary scenic easements and scenic or historic sites; provisions for pedestrians and bicycles; environmental mitigation in or adjacent to Federal land to improve public safety and reduce vehicle-caused wildlife mortality while maintaining habitat connectivity; construction and reconstruction of roadside rest areas, including sanitary and water facilities); operation and maintenance of transit facilities.

Forest Highway/Public Lands (FH/PL) This funding program was eliminated under MAP-21. All projects previously authorized under the Forest Highway Program and carry-over funds from SAFETEA-LU will still be administered under previous rules and regulations of the Forest Highway Program.

High Priority Projects (HPP and HPP-L) This program provides designated funding to the state (HPP) and Local Agencies (HPP-L) for specific projects identified by Congress.

Highway Safety Improvement Program (HSIP) The FAST Act continues the Highway Safety Improvement Program (HSIP) to achieve a significant reduction in traffic fatalities and serious injuries on all public roads, including non-State-owned public roads and roads on tribal lands. The HSIP requires a data-driven, strategic approach to improving highway safety on all public roads that focuses on performance. The FAST Act continues he overarching requirement that HSIP funds be used for safety projects that are consistent with the State’s Strategic Highway Safety Plan (SHSP) and that correct or improve a hazardous road location or feature or address a highway safety problem. Under MAP-21, the HSIP statute listed a range of eligible HSIP projects. However, the list was non-exhaustive, and a State could use HSIP funds on any safety project (infrastructure-related or non-infrastructure) that met the overarching requirement. In contrast, the FAST Act limits HSIP eligibility to only those listed in 23 USC § 148—most of which are infrastructure-safety related.

High Risk Rural Road (HRRR) A HRRR is any rural major or minor collector or a rural local road with significant safety risks, as defined by a State in accordance with an updated SHSP. This funding program was eliminated as a separate program under MAP-21. All projects previously authorized under the HRRR Program and carry-over funds will still be administered under previous rules and regulations of the HRRR Program.

Interstate Maintenance (IM) This program provides funding to rehabilitate, restore, and resurface the Interstate System.  Reconstruction is also eligible if it does not add capacity, and High-Occupancy-Vehicle (HOV) lanes can be added. This funding program was eliminated under MAP-21. All projects previously authorized under the IM Program and carry-over funds will still be administered under previous rules and regulations of the IM Program.

National Highway Freight Program (NHFP) The FAST Act established a new National Highway Freight Program to improve the efficient movement of freight on the National Highway Freight Network (NHFN) and support several goals. Generally, NHFP funds must contribute to the efficient movement of freight on the NHFN and be identified in a freight investment plan included in the State’s freight plan (required in FY 2018 and beyond). In addition, a State may use not more than 10% of its total NHFP apportionment each year for freight intermodal or freight rail projects. Eligible uses of program funds are as follows:

• Development phase activities, including planning, feasibility analysis, revenue forecasting, environmental review, preliminary engineering and design work, and other preconstruction activities.
• Construction, reconstruction, rehabilitation, acquisition of real property (including land relating to the project and improvements to land), construction contingencies, acquisition of equipment, and operational improvements directly relating to improving system performance.
• Intelligent transportation systems and other technology to improve the flow of freight, including intelligent freight transportation systems.
• Efforts to reduce the environmental impacts of freight movement.
• Environmental and community mitigation for freight movement.
• Railway‐highway grade separation.
• Geometric improvements to interchanges and ramps.
• Truck‐only lanes.
• Climbing and runaway truck lanes.
• Adding or widening of shoulders.
• Truck parking facilities eligible for funding under section 1401 (Jason’s Law) of MAP‐21.
• Real‐time traffic, truck parking, roadway condition, and multimodal transportation information systems.
• Electronic screening and credentialing systems for vehicles, including weigh‐in‐motion truck inspection technologies.
• Traffic signal optimization, including synchronized and adaptive signals.
• Work zone management and information systems.
• Highway ramp metering.
• Electronic cargo and border security technologies that improve truck freight movement.
• Intelligent transportation systems that would increase truck freight efficiencies inside the boundaries of intermodal facilities.
• Additional road capacity to address highway freight bottlenecks.
• Physical separation of passenger vehicles from commercial motor freight.
• Enhancement of the resiliency of critical highway infrastructure, including highway infrastructure that supports national energy security, to improve the flow of freight.
• A highway or bridge project, other than a project described above, to improve the flow of freight on the NHFN.
• Any other surface transportation project to improve the flow of freight into and out of an eligible intermodal freight facility.
• Diesel retrofit or alternative fuel projects under the Congestion Mitigation and Air Quality Improvement program (CMAQ) for class 8 vehicles.
• Conducting analyses and data collection related to the NHFP, developing and updating freight performance targets to carry out section 167 of title 23, and reporting to the Administrator to comply with the freight performance target under section 150 of title 23.

National Highway Performance Program (NHPP) The FAST Act continues the NHPP, which provides support for the condition and performance of the National Highway System (NHS), for the construction of new facilities on the NHS, and to ensure that investments of Federal-aid funds in highway construction are directed to support progress toward the achievement of performance targets established in a State’s asset management plan for the NHS.

NHPP projects must be on an eligible facility and support progress toward achievement of national performance goals for improving infrastructure condition, safety, mobility, or freight movement on the NHS, and be consistent with Metropolitan and Statewide planning requirements. Eligible activities include:

• Construction, reconstruction, resurfacing, restoration, rehabilitation, preservation, or operational improvements of NHS segments.
• Construction,  replacement  (including  replacement  with  fill  material),  rehabilitation, preservation,  and  protection  (including  scour  countermeasures, seismic retrofits, impact protection measures, security countermeasures, and protection against extreme events) of NHS bridges and tunnels.
• Bridge and tunnel inspection and evaluation on the NHS and inspection and evaluation of other NHS highway infrastructure assets.
• Training of bridge and tunnel inspectors.
• Construction, rehabilitation, or replacement of existing ferry boats and facilities, including approaches that connect road segments of the NHS.
• Construction, reconstruction, resurfacing, restoration, rehabilitation, and preservation of, and operational improvements for, a Federal‐aid highway not on the NHS, and construction of a transit project eligible for assistance under chapter 53 of title 49, if the project is in the same corridor and in proximity to a fully access‐controlled NHS route, if the improvement is more cost‐effective (as determined by a benefit‐cost analysis) than an NHS improvement, and will reduce delays or produce travel time savings on the NHS route and improve regional traffic flow.
• Bicycle transportation and pedestrian walkways.
• Highway safety improvements on the NHS.
• Capital and operating costs for traffic and traveler information, monitoring, management, and control facilities and programs.
• Development and implementation of a State Asset Management Plan for the NHS including data collection, maintenance and integration, software costs, and equipment costs.
• Infrastructure‐based ITS capital improvements.
• Environmental restoration and pollution abatement.
• Control of noxious weeds and establishment of native species.
• Environmental mitigation related to NHPP projects.
• Construction of publicly owned intracity or intercity bus terminals servicing the NHS.
• Workforce development, training, and education activities are also an eligible use of NHPP funds.
• Installation of vehicle‐to‐infrastructure communication equipment.
• Reconstruction, resurfacing, restoration, rehabilitation, or preservation of a bridge on a non‐NHS Federal‐aid highway (if Interstate System and NHS Bridge Condition provision requirements are satisfied).
• A project to reduce the risk of failure of critical NHS infrastructure (defined to mean a facility, the incapacity or failure of which would have a debilitating impact in certain specified areas).
• At a State’s request, the U.S. DOT may use the State’s STBG funding to pay the subsidy and administrative costs for TIFIA credit assistance for an eligible NHPP project or group of projects.